I 
109TH CONGRESS 
1ST SESSION H. R. 2012 
To combat commercial sexual activities by targeting demand, to protect chil-
dren from being exploited by such activities, to prohibit the operation 
of sex tours, to assist State and local governments to enforce laws 
dealing with commercial sexual activities, to reduce trafficking in persons, 
and for other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
APRIL 28, 2005 
Ms. PRYCE of Ohio (for herself, Mrs. MALONEY, Mr. SCOTT of Virginia, Ms. 
GRANGER, Ms. HARRIS, and Mrs. DRAKE) introduced the following bill; 
which was referred to the Committee on the Judiciary 
A BILL 
To combat commercial sexual activities by targeting demand, 
to protect children from being exploited by such activi-
ties, to prohibit the operation of sex tours, to assist 
State and local governments to enforce laws dealing with 
commercial sexual activities, to reduce trafficking in per-
sons, and for other purposes. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘End Demand for Sex 
Trafficking Act of 2005’’.
SEC. 2. FINDINGS AND PURPOSES. 
(a) FINDINGS.—Congress makes the following find-
ings: 
(1) Commercial sexual activities have a dev-
astating impact on society. The sex trade has a de-
humanizing effect on all involved. 
(2) According to a 2004 publication by the Of-
fice to Monitor and Combat Trafficking in Persons 
of the State Department, prostitution and related 
activities, including pimping and patronizing or 
maintaining brothels, fuel the growth of modern-day 
slavery by providing a facade behind which sex traf-
fickers operate. Where prostitution is tolerated, 
there is a greater demand for trafficking victims and 
nearly always an increase in the number of women 
and children trafficked into commercial sexual activi-
ties. 
(3) The Trafficking in Persons National Secu-
rity Presidential Directive (February 25, 2003) 
states that prostitution and related activities, which 
are inherently harmful and dehumanizing, contribute 
to the phenomenon of trafficking in persons. In Sep-
tember 2003, President George W. Bush gave a 
speech at the United Nations in which he character-
ized the victimization of children in the sex trade as 
a ‘‘special evil’’. He specifically condemned the de-
mand for victims by saying, ‘‘Those who patronize 
this industry debase themselves and deepen the mis-
ery of others’’. 
(4) An alarming number of individuals who are 
used for commercial sexual activities are socially and 
economically marginalized, and kept in effective 
bondage by threats or acts of physical and sexual 
abuse. Engaging in commercial sex acts, such as 
prostitution, renders them vulnerable to violence at 
the hands of pimps, purchasers, and other predators 
such as serial killers and rapists, as well as degrada-
tion resulting from commercial sexual activities. 
Women and children are at a disproportionately 
higher risk for exploitation. 
(5) Although current laws punish sex traf-
fickers, exploiters, and purchasers of commercial 
sexual activities, these laws are typically enforced 
disproportionately against women and children, in-
stead of against the sex traffickers, exploiters, and 
purchasers. 
(6) According to recent studies— 
(A) 11 females used in commercial sexual 
acts were arrested in Boston for every arrest of 
a male purchaser;
(B) 9 females used in commercial sexual 
acts were arrested in Chicago for every arrest 
of a male purchaser; and 
(C) 6 females used in commercial sexual 
acts were arrested in New York City for every 
arrest of a male purchaser. 
(7) Some studies reveal that commercial sex is 
a frequent gateway crime for women who later com-
mit more serious criminal offenses. Over 70 percent 
of female inmates in United States prisons were first 
arrested for engaging in commercial sexual acts. For 
every 3 women in jails in the United States today, 
1 was arrested for prostitution, and 7 of every 10 
women imprisoned on felony convictions were ini-
tially arrested for prostitution. 
(8) The emotional and physical ramifications of 
sex trafficking of children and women are stag-
gering, leading to an increased risk of— 
(A) sexual and physical assault; 
(B) violence; 
(C) suicide; 
(D) pregnancy; 
(E) abortion; 
(F) sexually transmitted diseases, includ-
ing AIDS;
(G) post-traumatic stress disorder; and 
(H) death. 
(9) Sex trafficking has a particularly dev-
astating and alarming impact upon children. Accord-
ing to some estimates, between 100,000 to 300,000 
children are victimized by sex trafficking at any 
given time. According to the CyberTipline of the Na-
tional Center for Missing and Exploited Children, 
reports of child sexual exploitation, including child 
pornography, child prostitution, online enticement of 
children, and child sex tourism, have increased 750 
percent over the past 5 years. 
(10) Runaway children are especially vulnerable 
to sex traffickers, who lure these children into dev-
astating lives as victims of commercial sexual acts 
with promises of food, clothing, and shelter. 
(11) According to the Office of Juvenile Justice 
and Delinquency Prevention in the Department of 
Justice, in 2002— 
(A) over 1,300,000 children were missing 
in the United States; 
(B) as many as 775,000 of these children 
are runaways; and
(C) 76 percent of runaway children who 
call the National Runaway Switchboard are 
girls under the age of 18. 
(12) The United Nations estimates that sex 
trafficking, including sex tourism, generates approxi-
mately $5,000,000,000 a year in revenues. There 
are a number of United States-based companies that 
overtly and explicitly facilitate sex tours, often in-
volving the sexual exploitation of children. According 
to some estimates, up to 1⁄4 of international sex 
tourists are American. 
(13) Under the Trafficking Victims Protection 
Act of 2000 (22 U.S.C. 7101 et seq.), the United 
States is committed to ending the international traf-
ficking of persons for slavery, including sex slavery. 
The achievement of significant progress in reducing 
sex trafficking within the United States will bolster 
United States efforts to eliminate international traf-
ficking in persons for slavery, including sex slavery, 
around the world. 
(14) Stronger enforcement of laws against sex 
traffickers, exploiters, and purchasers may dramati-
cally reduce demand for commercial sexual acts and 
related sex trafficking and reduce the exploitation of 
persons engaged in commercial sexual activities.
(15) More services are needed for victims of 
commercial sexual activities to ensure that they are 
treated with dignity and respect and are able to ac-
cess benefits and programs designed to help them 
escape the sex trade and regain their health and 
safety. 
(16) Additional research and statistics at the 
national, State, and local level will clarify the extent 
of commercial sexual activities within the United 
States, and the most effective strategies for com-
bating such unlawful activities. 
(b) PURPOSES.—The purposes of this Act are— 
(1) to support the development of more effective 
means of combating commercial sexual activities by 
targeting demand; 
(2) to protect children from the predators and 
exploiters who use them in commercial sexual activi-
ties; 
(3) to clarify that the operation of sex tours is 
prohibited under Federal law; and 
(4) to assist State and local governments in 
their enforcement of existing laws dealing with com-
mercial sexual activities. 
SEC. 3. DEFINITIONS. 
In this Act, the following definitions shall apply:
(1) COMMERCIAL SEX ACT.—The term ‘‘com-
mercial sex act’’ means any sex act on account of 
which anything of value is given to, or received by, 
any person. 
(2) EXPLOITER.—The term ‘‘exploiter’’ means 
any person who, for financial gain, procures, sells, or 
purveys a person for the purpose of engaging in an 
unlawful commercial sex act, including pimps, pan-
derers, procurers, and brothel operators. 
(3) 
PURCHASER.—The 
term 
‘‘purchaser’’ 
means any person who solicits or purchases an un-
lawful commercial sex act. 
(4) QUALIFIED
NON-GOVERNMENTAL
ORGANI-
ZATION.—The term ‘‘qualified non-governmental or-
ganization’’ means any organization that the Attor-
ney General, the Assistant Secretary for Children 
and Families of the Department of Health and 
Human Services, or the chief law enforcement offi-
cer of a State or political subdivision of a State de-
termines is engaged or plans to engage in efforts to 
protect and rehabilitate persons engaged in commer-
cial sexual activities on a not-for-profit basis. 
(5) SEX
TRAFFICKER.—The term ‘‘sex traf-
ficker’’ means any person who, for financial gain, re-
cruits, harbors, transports, provides, or obtains a
person for the purpose of using them for unlawful 
commercial sex acts. 
(6) VICTIM OF A COMMERCIAL SEX ACT.—The 
term ‘‘victim of a commercial sex act’’ means any 
person offered for use in a commercial sexual act. 
SEC. 4. PROSECUTION OF PURCHASERS, SEX TRAFFICKERS, 
AND EXPLOITERS. 
(a) GRANTS AUTHORIZED.—The Attorney General 
may award grants to States and their political subdivisions 
to establish model law enforcement programs that promote 
the effective prosecution of purchasers, exploiters, and sex 
traffickers and to assist victims of a commercial sex act. 
(b) USE OF GRANT FUNDS.—Funds received from a 
grant awarded under this Act may be used by the grantee, 
either directly or through subgrants to local law enforce-
ment entities or qualified non-governmental organizations, 
for the following purposes: 
(1) PURCHASERS.—The prosecution and deter-
rence of purchasers, through— 
(A) prosecutions of purchasers for statu-
tory rape, sexual assault, felony assault, and re-
lated offenses; 
(B) educational programs for first-time 
purchasers explaining the devastation caused by 
such offenses;
(C) the publication of names and addresses 
of individuals who have been convicted for re-
peated purchases, provided that reasonable pro-
cedures are established for correction of names 
and addresses that are improperly published re-
peat purchasers; 
(D) the use of decoys; and 
(E) other programs the Attorney General 
determines will enhance the prosecution of pur-
chasers and reduce the demand for unlawful 
commercial sexual activities. 
(2) SEX TRAFFICKERS AND EXPLOITERS.—The 
prosecution 
of 
sex 
traffickers 
and 
exploiters, 
through— 
(A) surveillance of places of business en-
gaged in commercial sexual activities; 
(B) prosecutions of exploiters and sex traf-
fickers for statutory rape, sexual assault, felony 
assault, and related offenses; 
(C) tax evasion prosecutions against ex-
ploiters and sex traffickers; and 
(D) proceedings under restitution laws to 
supplement public financing of shelters and so-
cial services and to compensate victims of do-
mestic sex trafficking.
(3) QUALIFIED
NON-GOVERNMENTAL
ORGANI-
ZATIONS.— 
(A) IN GENERAL.—To assist social service 
programs operated by qualified non-govern-
mental organizations with special expertise in 
assisting victims of commercial sexual activities 
and whose programs offer protection, education, 
food, and shelter for victims of commercial sex-
ual activities. 
(B) SPECIAL CONSIDERATION.—In award-
ing grants under this paragraph, the Attorney 
General shall give special consideration to pro-
grams operated by qualified non-governmental 
organizations that offer assistance to persons 
involved in the prosecution of sex traffickers, 
exploiters, and purchasers. 
(c) REPORTS BY GRANTEES.— 
(1) IN GENERAL.—Not later than 90 days after 
the end of the period for which a grant was made 
under this section, each grantee shall submit a re-
port to the Attorney General. 
(2) CONTENTS.—The report submitted under 
paragraph (1) shall—
(A) identify and describe the activities car-
ried out with grant funds received under this 
section; and 
(B) include an evaluation by the grantee of 
the effect of those activities. 
(3) SUPPLEMENTAL
REPORTS.—The Attorney 
General may require additional reports at such times 
as may be necessary to effectively facilitate the re-
porting and dissemination requirements under sec-
tion 7(a). 
(4) DISSEMINATION.—The Attorney General 
shall ensure that each report submitted under this 
subsection is posted to the Department of Justice 
website. 
(d) AUTHORIZATION
OF APPROPRIATIONS.—There 
are authorized to be appropriated, for each of the fiscal 
years 2005 through 2007— 
(1) $15,000,000 for grants to carry out the ac-
tivities described in subsection (b)(1); 
(2) $15,000,000 for grants to carry out the ac-
tivities described in subsection (b)(2); and 
(3) $15,000,000 for grants to carry out the ac-
tivities described in subsection (b)(3).
SEC. 5. STRENGTHENING PROSECUTION AND PUNISHMENT 
OF SEX TRAFFICKERS AND PURCHASERS AND 
EXPLOITERS. 
(a) TRANSPORTATION.—Section 2421 of title 18, 
United States Code, is amended by inserting after ‘‘any 
individual’’ the following: ‘‘, including a purchaser of com-
mercial sexual activities as defined by section 2422,’’. 
(b) COERCION AND ENTICEMENT.—Section 2422 of 
title 18, United States Code, is amended— 
(1) in subsection (a), by inserting after ‘‘any in-
dividual’’ the following: ‘‘, including a purchaser of 
commercial sexual acts,’’; and 
(2) by adding at the end the following: 
‘‘(c) As used in sections 2421 and 2422, the term 
‘purchaser of commercial sexual acts’ means any person 
who solicits or purchases an unlawful commercial sex act 
in exchange for anything of value given to or received by, 
or to be given to or received by, any person.’’. 
SEC. 6. SENIOR OPERATING GROUP PARTICIPATION. 
Federal agencies involved in combating sex traf-
ficking and providing services to victims of commercial sex 
acts inside the United States shall coordinate their activi-
ties with the Senior Policy Operating Group established 
by section 105 of the Victims of Trafficking and Violence 
Protection Act of 2000 (22 U.S.C. 7103), under the proce-
dures established by the Senior Policy Operating Group,
to ensure that Federal programs are consistent with Fed-
eral enforcement of the Trafficking Victims Protection Act 
of 2000 (22 U.S.C. 7101 et seq.). 
SEC. 7. REPORTS. 
(a) ANNUAL REPORT ON BEST PRACTICES TO RE-
DUCE DEMAND FOR COMMERCIAL SEX ACTS.— 
(1) IN GENERAL.—Not later than 1 year after 
the date of enactment of this Act, and annually 
thereafter, the Attorney General shall submit a full 
and detailed report of the implementation of this Act 
to the Committee on the Judiciary of the Senate and 
the Committee on the Judiciary of the House of 
Representatives. 
(2) CONTENTS.—The report submitted under 
paragraph (1) shall include— 
(A) a detailed explanation of the standards 
by which the Attorney General has— 
(i) awarded grants to States and their 
political subdivisions under section 4; and 
(ii) evaluated the success of grant 
awards in enhancing the prosecution and 
conviction of purchasers, sex traffickers, 
and exploiters, and in reducing demand for 
commercial sexual activity; and
(B) a detailed description of the implemen-
tation of the amendments under section 5, in-
cluding the number of arrests, prosecutions, 
and convictions. 
(3) ANNUAL CONFERENCES.— 
(A) IN GENERAL.—The Attorney General, 
at each annual conference conducted by the De-
partment of Justice, shall— 
(i) announce and evaluate the findings 
contained in the report submitted under 
paragraph (1); and 
(ii) disseminate best methods and 
practices for training State and local law 
enforcement personnel involved in enforc-
ing laws prohibiting commercial sexual 
acts. 
(B) PARTICIPATION.—Each annual con-
ference under this paragraph shall involve the 
full participation of leading experts in the field, 
including— 
(i) local law enforcement and prosecu-
torial officials; 
(ii) appropriate State officials; 
(iii) academic experts on commercial 
sexual activity;
(iv) appropriate medical personnel; 
and 
(v) representatives of qualified non- 
governmental organizations. 
(b) COMPREHENSIVE STATISTICAL REVIEW OF COM-
MERCIAL SEXUAL ACTS.— 
(1) IN GENERAL.—The Attorney General shall 
carry out a biennial comprehensive statistical review 
and analysis of commercial sexual acts in the United 
States. 
(2) CONTENTS.—The statistical review and 
analysis under this subsection shall include— 
(A) the estimated number of persons used 
in commercial sexual acts; 
(B) the estimated number of sex traf-
fickers, exploiters, and purchasers; 
(C) the ethnicity, age, and sex of victims of 
commercial sexual acts; 
(D) the ethnicity and sex of sex traffickers, 
purchasers, and exploiters; 
(E) the number of investigations, arrests, 
prosecutions, and incarcerations of persons en-
gaged in unlawful commercial sexual activities 
by acts by States and their political subdivi-
sions;
(F) the number of investigations, arrests, 
prosecutions, and incarcerations of sex traf-
fickers, exploiters, or purchasers; and 
(G) the differences in the enforcement of 
laws relating to unlawful commercial sexual ac-
tivities by similarly situated jurisdictions. 
(3) SOLICITATION
OF
VIEWS.—In conducting 
the statistical review and analysis under this sub-
section, the Attorney General shall solicit views 
from— 
(A) Federal and State prosecutorial offi-
cials; 
(B) Federal, State, county, and municipal 
law enforcement officials; 
(C) persons used in commercial sexual ac-
tivities; 
(D) academic experts on commercial sexual 
activity; and 
(E) other experts in the area of commer-
cial sexual acts. 
(4) DEADLINES.—Not later than 1 year after 
the date of enactment of this Act, and every 2 years 
thereafter, the Attorney General shall submit a re-
port regarding the results of the statistical review 
and analysis under this section to the Committee on
the Judiciary of the Senate and the Committee on 
the Judiciary of the House of Representatives. 
(c) AUTHORIZATION
OF APPROPRIATIONS.—There 
are authorized to be appropriated— 
(1) $1,000,000 for each of the fiscal years 2005 
through 2007 to carry out subsection (a); and 
(2) $1,000,000 for each of the fiscal years 2005 
and 2007 to carry out subsection (b). 
Æ