Cover 4 7/13/10 4:29 PM Page 1 U.S. Department of Justice U.S. Department of Justice The National Strategy for Child Exploitation Prevention and Interdiction A REPORT TO CONGRESS AUGUST 2010 C 2 C 3 I. EXECUTIVE SUMMARY .................................................................................................. 1 II. A GRAVE THREAT TO A PRECIOUS RESOURCE: AN ASSESSMENT OF CURRENT CHILD EXPLOITATION THREATS .................................................... 8 A. CHILD PORNOGRAPHY— IMAGES OF CHILD SEXUAL ABUSE ......................... 8 1. CHILD PORNOGRAPHY OFFENSES PRESENT A REAL THREAT TO CHILDREN. ........................... 9 2. CHILD PORNOGRAPHERS ARE INCREASING THEIR EFFORTS TO AVOID BEING IDENTIFIED. ... 23 3. ORGANIZED CRIMINAL GROUPS ARE INVOLVED IN THE PRODUCTION AND DISTRIBUTION OF CHILD PORNOGRAPHY. ....................................................................................................... 25 4. LAW ENFORCEMENT AGENCIES ARE FOCUSING ON FACTORS THAT MAY HELP PREDICT CHILD PORNOGRAPHERS WHO POSE A GREATER RISK TO CHILDREN. ............................................. 27 B. ONLINE ENTICEMENT .................................................................................................. 29 1. ONLINE ENTICEMENT COMPLAINTS ARE INCREASING, DRAWING MORE LAW ENFORCEMENT RESOURCES INTO COMPLEX AND TIME-CONSUMING INVESTIGATIONS. ............................... 30 2. ONLINE PREDATORS DEMONSTRATE GREAT PATIENCE IN MANIPULATING CHILDREN INTO VULNERABLE SITUATIONS. ................................................................................................. 30 C. THE DOMESTIC PROSTITUTION OF CHILDREN .................................................. 31 1. PIMPS PREY ON VULNERABLE CHILDREN, MANIPULATING THEM AND THEN TRAPPING THEM IN CHILD PROSTITUTION. .................................................................................................... 31 2. THERE IS STEADY DEMAND AND PROFIT IN THE PROSTITUTION OF CHILDREN. .................... 32 3. CHILD VICTIMS OF PROSTITUTION—THE VICTIMS OF COMMERCIAL SEXUAL EXPLOITATION—ARE MORE LIKELY TO BE ARRESTED THAN ARE THE CHILD SEX TRAFFICKERS OR CLIENT SEX OFFENDERS. ......................................................................... 34 4. CHILD VICTIMS OF PROSTITUTION SUFFER EXTREME FORMS OF EXPLOITATION AND OFTEN ARE UNABLE, EVEN IF RESCUED, TO PERMANENTLY ESCAPE THE INFLUENCE OF TRAFFICKERS. .................................................................................................................... 35 D. CHILD SEX TOURISM..................................................................................................... 36 1. U.S. CITIZENS ACCOUNT FOR A LARGE PORTION OF INTERNATIONAL CHILD SEX TOURISTS AND THEIR NUMBERS ARE GROWING. ................................................................................. 36 2. CHILD SEX TOURISTS OFTEN ENGAGE IN MANY FORMS OF CHILD EXPLOITATION, CAUSING EXTREME AND LASTING DAMAGE TO VICTIMS. ................................................................... 37 3. INVESTIGATING AND PROSECUTING AMERICAN CHILD SEX TOURISTS IS VERY DIFFICULT; HOWEVER, A CHANGE IN CHILD EXPLOITATION LAWS HAS AIDED PROSECUTORS. ............... 37 E. CHILD EXPLOITATION IN INDIAN COUNTRY ....................................................... 38 III. THE NATION’S APPROACH TO COMBATTING CHILD EXPLOITATION ........ 41 A. A REVIEW OF THE DEPARTMENT OF JUSTICE’S OFFICES INVOLVED IN THE FIGHT TO PREVENT, INVESTIGATE, AND PROSECUTE CHILD EXPLOITATION CRIMES .............................................................................................. 41 1. OFFICE OF THE DEPUTY ATTORNEY GENERAL ................................................................... 42 2. THE FEDERAL BUREAU OF INVESTIGATION ........................................................................ 42 3. UNITED STATES MARSHALS SERVICE ................................................................................ 46 i C 4 4. UNITED STATES ATTORNEY’S OFFICES .............................................................................. 47 5. CRIMINAL DIVISION’S CHILD EXPLOITATION AND OBSCENITY SECTION (CEOS) ............. 47 6. OFFICE OF JUSTICE PROGRAMS (OJP) ................................................................................ 50 7. BUREAU OF PRISONS .......................................................................................................... 54 8. OFFICE OF COMMUNITY ORIENTED POLICING SERVICES (COPS) ...................................... 56 9. OFFICE OF INTERNATIONAL AFFAIRS (OIA) ...................................................................... 56 10. OFFICE OF LEGAL POLICY (OLP) ....................................................................................... 56 11. INTERPOL WASHINGTON .................................................................................................... 57 B. A REVIEW OF THE INTERNET CRIMES AGAINST CHILDREN TASK FORCE PROGRAM ......................................................................................................................... 58 1. BACKGROUND ON THE ICAC PROGRAM ............................................................................ 58 2. NUMBER AND LOCATION OF ICAC TASK FORCES ............................................................. 60 3. NUMBER OF TRAINED PERSONNEL AT EACH ICAC TASK FORCE ...................................... 63 4. FEDERAL GRANTS AWARDED TO EACH TASK FORCE ........................................................ 64 5. ASSESSMENT OF FEDERAL, STATE, AND LOCAL COOPERATION ......................................... 67 6. INVESTIGATIVE TECHNICAL ASSISTANCE PROVIDED BY ICAC TASK FORCES. ................... 74 7. COMPUTER FORENSIC EXAMINATIONS BY ICAC TASK FORCES. ........................................ 76 8. NUMBER AND TYPE OF ICAC TASK FORCE AFFILIATE AGENCIES. ...................................... 78 9. ASSESSMENT OF TRAINING AND TECHNICAL ASSISTANCE TO SUPPORT ICAC GRANTEES. .. 78 10. ASSESSMENT OF LEVERAGING STATE AND LOCAL FUNDS. ................................................. 81 C. OTHER FEDERAL AGENCIES’ EFFORTS ................................................................. 81 1. DEPARTMENT OF HOMELAND SECURITY’S EFFORTS .......................................................... 81 2. DEPARTMENT OF DEFENSE’S EFFORTS ............................................................................... 86 3. U.S. POSTAL INSPECTION SERVICE EFFORTS ..................................................................... 87 4. DEPARTMENT OF HEALTH AND HUMAN SERVICES EFFORTS .............................................. 89 5. MILITARY CRIMINAL INVESTIGATIVE ORGANIZATIONS (MCIO) EFFORTS ........................ 91 D. PUBLIC-PRIVATE COORDINATION EFFORTS TO PREVENT AND INTERDICT CHILD EXPLOITATION ................................................................................................. 93 1. THE NATIONAL CENTER FOR MISSING & EXPLOITED CHILDREN (NCMEC) ..................... 93 2. OTHER EXAMPLES OF PUBLIC-PRIVATE COORDINATION ................................................... 95 E. A REVIEW OF THE DEPARTMENT’S COOPERATION AND COORDINATION EFFORTS ............................................................................................................................ 97 1. OVERARCHING EFFORTS TO COORDINATE CHILD EXPLOITATION, PREVENTION, AND INTERDICTION .................................................................................................................... 98 2. FBI’S LAW ENFORCEMENT COORDINATION EFFORTS........................................................ 99 3. EFFORTS TO COORDINATE WITH THE JUDICIAL BRANCH ................................................. 100 4. INTERNATIONAL COORDINATION EFFORTS TO PREVENT AND INTERDICT CHILD EXPLOITATION ................................................................................................................. 100 F. REVIEW OF INTERNET SAFETY PROGRAMS ...................................................... 110 1. METHODOLOGY OF REVIEW ............................................................................................. 111 2. U.S. DEPARTMENT OF JUSTICE FUNDED PROGRAMS ........................................................ 112 3. FTC and U.S. DEPARTMENT OF COMMERCE FUNDED PROGRAMS ................................... 116 ii C 5 4. U.S. DEPARTMENT OF EDUCATION FUNDED PROGRAMS ................................................. 117 5. FEDERAL COMMUNICATIONS COMMISSION FUNDED PROGRAM: E-RATE ........................ 117 6. U.S. DEPARTMENT OF AGRICULTURE FUNDED PROGRAM: TECHNOLOGY 4-H ............... 117 7. U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES FUNDED PROGRAM: 4GIRLS HEALTH: HOW TO BE SAFETY SAVVY ............................................................................. 118 8. U.S. DEPARTMENT OF HOMELAND SECURITY .................................................................. 118 9. U.S. DEPARTMENT OF DEFENSE FUNDED PROGRAM: SAFEKIDS ..................................... 118 10. NATIONAL AERONAUTICS AND SPACE ADMINISTRATION (NASA) FUNDED PROGRAM: NASAEXPLORES CYBERSAFETY ...................................................................................... 119 11. INTERAGENCY/FEDERAL–STATE COLLABORATION FUNDED PROGRAM .......................... 119 “I Keep Safe”—Faux Pas, the Techno Cat ..................................................................... 119 12. CONGRESSIONALLY MANDATED - FEDERALLY FUNDED RESEARCH ................................ 120 National Academy of Sciences Study: Youth, Pornography, and the Internet .............. 120 13. U.S.