FTC: Consumer Privacy Comments Concerning The Statement of Louis J. Freeh--P954807 U.S. Department of Justice Statement of before the Senate Appropriations Committee April 8, 1997 GOOD MORNING, CHAIRMAN GREGG AND MEMBERS OF THE SUBCOMMITTEE. I AM GRATEFUL FOR THIS OPPORTUNITY TO DISCUSS THE SERIOUS PROBLEMS OF CHILD PORNOGRAPHY, ESPECIALLY CHILD PORNOGRAPHY INVOLVING THE INTERNET AND ON-LINE COMPUTER SERVICES. THE FBI HAS DEVELOPED A COMPREHENSIVE "CRIMES AGAINST CHILDREN" INITIATIVE THAT FOCUSES ON THE FULL RANGE OF FEDERAL CRIMES INVOLVING THE VICTIMIZATION AND PHYSICAL HARM OF CHILDREN. OUR CHILDREN ARE OUR NATION'S MOST VALUABLE ASSET. THEY REPRESENT THE BRIGHT FUTURE OF OUR COUNTRY AND HOLD OUR HOPES FOR A BETTER NATION. I CAN THINK OF NO GREATER SATISFACTION THAN THAT OF BEING THE PARENT OF FIVE YOUNG BOYS AND WATCHING THEM GROW UP IN THIS GREAT COUNTRY. OUR CHILDREN ARE ALSO SOME OF THE MOST VULNERABLE MEMBERS OF SOCIETY. AS A PARENT, I SHARE THE SAME ANXIETY AND OUTRAGE THAT PARENTS ACROSS THE NATION EXPERIENCE EACH TIME A CHILD IS SEXUALLY EXPLOITED, SEXUALLY ABUSED, OR MURDERED. PROTECTING OUR CHILDREN AGAINST THE FEAR OF CRIME AND FROM BECOMING VICTIMS OF CRIME MUST BE A NATIONAL PRIORITY. UNFORTUNATELY, THE SAME MARVELOUS ADVANCES IN COMPUTER AND TELECOMMUNICATIONS TECHNOLOGY THAT ALLOW OUR CHILDREN TO REACH OUT TO NEW SOURCES OF KNOWLEDGE AND CULTURAL EXPERIENCES ARE ALSO LEAVING THEM UNWITTINGLY VULNERABLE TO EXPLOITATION AND HARM BY PEDOPHILES AND OTHER SEXUAL PREDATORS IN WAYS NEVER BEFORE POSSIBLE. THE PROLIFERATION AND READY AVAILABILITY OF CHILD PORNOGRAPHY THROUGH THE INTERNET AND ON-LINE SERVICES, AND THE USE OF THESE SERVICES BY PEDOPHILES AND SEXUAL PREDATORS TO TARGET AND RECRUIT CHILDREN FOR EXPLOITATION, REPRESENT NEW CHALLENGES TO THE FBI AND THE LAW ENFORCEMENT COMMUNITY. THESE CHALLENGES INCLUDE: (1) DEVELOPING INNOVATIVE INVESTIGATIVE AND PROSECUTIVE STRATEGIES FOR DEALING WITH FEDERAL CRIMES COMMITTED IN CYBERSPACE, AND (2) BUILDING STRONG LEGAL PRECEDENTS THAT SUPPORT THESE PROSECUTIONS IN FEDERAL COURT. THE FBI BRINGS TO CASES INVOLVING CHILD PORNOGRAPHY AND OTHER CRIMES AGAINST CHILDREN A FULL RANGE OF INVESTIGATIVE RESOURCES AND TECHNICAL CAPABILITIES. FBI AGENTS WORKING THESE CASES POSSESS AN EXTRAORDINARY WEALTH OF INVESTIGATIVE EXPERTISE AND EXPERIENCE. THE FBI HAS A DEMONSTRATED ABILITY TO APPLY MODERN TECHNOLOGY TO INVESTIGATE CRIMES FACILITATED BY COMPUTERS AND RELATED MEDIUMS. FINALLY, THE FBI MAINTAINS STRONG RELATIONSHIPS WITH STATE AND LOCAL LAW ENFORCEMENT THAT ALLOWS US TO PROVIDE INVESTIGATIVE, FORENSIC, AND TECHNICAL ASSISTANCE WHEN REQUESTED. PREVENTING VICTIMIZATION AT THE SAME TIME, THE WIDESPREAD AND GROWING AVAILABILITY OF THIS TECHNOLOGY DEMANDS THAT ALL OF US -- ELECTED AND APPOINTED PUBLIC OFFICIALS, LAW ENFORCEMENT PARENTS, EDUCATORS, AND INDUSTRY -- BE MORE VIGILANT AND RESPONSIBLE BY TEACHING OUR CHILDREN HOW TO AVOID BECOMING VICTIMS OF SEXUAL PREDATORS. PARENTS SHOULD TALK TO THEIR CHILDREN ABOUT THE POTENTIAL DANGERS THEY MAY ENCOUNTER THROUGH THE INTERNET AND ON-LINE SERVICES. SEVERAL GROUPS, INCLUDING THE NATIONAL CENTER FOR MISSING AND EXPLOITED CHILDREN, HAVE ISSUED GUIDELINES FOR PARENTS ON SAFEGUARDING CHILDREN WHO USE COMPUTERS LINKED TO THE INFORMATION HIGHWAY. SCHOOLS THAT OFFER COMPUTER CLASSES AND ACCESS TO STUDENTS SHOULD INCLUDE APPROPRIATE DISCUSSION OF THIS PROBLEM IN THEIR CURRICULUM. CREATING AWARENESS OF THE PROBLEM IS A FIRST STEP TOWARD REDUCING VULNERABILITY. ADDITIONALLY, ARRANGEMENTS WITH ON-LINE SERVICE PROVIDERS AND COMMERCIAL SOFTWARE ARE AVAILABLE TO BLOCK ACCESS TO SEXUALLY-ORIENTED INTERNET AND ON-LINE BULLETIN BOARDS, CHAT ROOMS, AND SITES. SUCH ARRANGEMENTS AND SOFTWARE CAN HELP REDUCE - BUT WILL NOT TOTALLY ELIMINATE -- THE VULNERABILITY OF CHILDREN AGAINST SEXUAL PREDATORS. TEENAGERS WHO ARE ADEPT AT DEVELOPING THEIR OWN PROGRAMMING CODES HAVE BEEN ABLE TO CIRCUMVENT BLOCKING SOFTWARE. ALSO, SINCE BLOCKING TECHNOLOGY IS OFTEN SPECIFIC TO A PARTICULAR COMPUTER, CHILDREN CAN OBTAIN ACCESS TO THE INTERNET AND COMMERCIAL SERVICES FROM AN UNPROTECTED COMPUTER. DESPITE THESE LIMITATIONS, BLOCKING TECHNOLOGY CAN BE AN EFFECTIVE TOOL IN SAFEGUARDING YOUNG CHILDREN. STRONG AND EFFECTIVE PREVENTION STRATEGIES THAT DEVELOP AND INSTILL A SENSE OF RESPONSIBILITY IN ACCESSING THE INTERNET AND ON-LINE SERVICES, IN PARTNERSHIP WITH EFFECTIVE LAW ENFORCEMENT INITIATIVES, ARE NECESSARY IF WE ARE TO BE SUCCESSFUL IN REDUCING THE VULNERABILITY OF OUR CHILDREN TO SEXUAL PREDATORS AND RELATED CRIMES. CRIMES AGAINST CHILDREN INITIATIVE AS I INDICATED EARLIER, THE FBI IS ATTACKING THE PROLIFERATION OF CHILD PORNOGRAPHY ON THE INTERNET AND ON-LINE SERVICES THROUGH A COMPREHENSIVE "CRIMES AGAINST CHILDREN" INITIATIVE. THIS INITIATIVE ENCOMPASSES SEVERAL MAJOR CRIME PROBLEMS, INCLUDING: THE SEXUAL EXPLOITATION OF CHILDREN; CHILD ABDUCTIONS; CHILD ABUSE ON GOVERNMENT AND INDIAN RESERVATIONS; PARENTAL/FAMILY CUSTODIAL KIDNAPINGS; CHILD SUPPORT RECOVERY ACT; AND VIOLENT CRIMES AGAINST YOUTH. SEXUAL EXPLOITATION OF CHILDREN SEXUAL EXPLOITATION OF CHILDREN INVOLVES SEXUAL ACTIVITY IN WHICH THE PERPETRATOR RECEIVES SEXUAL GRATIFICATION AND MAY BENEFIT FINANCIALLY, SUCH AS THROUGH THE MANUFACTURE AND DISTRIBUTION OF CHILD PORNOGRAPHY. EXPLOITATION MAY INCLUDE CONTACTS FOR SEXUAL PURPOSES, PROSTITUTION, PORNOGRAPHY, OR OTHER SEXUALLY EXPLOITATIVE ACTIVITIES. INCREASINGLY, PEDOPHILES AND SEXUAL PREDATORS ARE USING THE INTERNET AND ON-LINE SERVICES TO TARGET AND RECRUIT VICTIMS AND TO FACILITATE THE DISTRIBUTION OF CHILD PORNOGRAPHY. PEDOPHILES OFTEN SEEK OUT YOUNG CHILDREN BY EITHER PARTICIPATING IN OR MONITORING ACTIVITIES IN CHAT ROOMS THAT ARE PROVIDED BY COMMERCIAL ON-LINE SERVICES FOR TEENAGERS AND PRETEENS TO CONVERSE WITH EACH OTHER. THESE CHAT ROOMS ALSO PROVIDE PEDOPHILES AN ANONYMOUS MEANS OF ESTABLISHING RELATIONSHIPS WITH CHILDREN. USING A CHAT ROOM, A CHILD CAN CONVERSE FOR HOURS WITH UNKNOWN INDIVIDUALS, OFTEN WITHOUT THE KNOWLEDGE OR APPROVAL OF THEIR PARENTS. THERE IS NO EASY WAY FOR THE CHILD TO KNOW IF THE PERSON HE OR SHE IS TALKING WITH IS, IN FACT, ANOTHER 14-YEAR OLD, OR IS A 40-YEAR OLD SEXUAL PREDATOR MASQUERADING AS A PEER. IN OTHER INSTANCES, A PEDOPHILE MAY USE E-MAIL CAPABILITIES TO SEND CHILD PORNOGRAPHY TO PERSONS WHO ENTER A CHAT ROOM, EVEN THOUGH THE RECIPIENT DOES NOT REQUEST OR WANT SUCH MAIL. PEDOPHILES AND SEXUAL PREDATORS ALSO TARGET CHILDREN BY POSING AS OTHER CHILDREN SEEKING PEN PALS OR BY POSTING NOTICES ON BULLETIN BOARDS. RELATIONSHIPS ARE DEVELOPED FOR THE PURPOSE OF MAKING CONTACT FOR CONDUCTING ILLICIT SEXUAL ACTS. THE FBI HAS INVESTIGATED MORE THAN 10 CASES INVOLVING PEDOPHILES TRAVELING INTERSTATE TO MEET JUVENILES. IN ONE CASE INVESTIGATED BY THE FBI IN MARYLAND AND FLORIDA, IN CONJUNCTION WITH THE CLEARWATER, FLORIDA, POLICE DEPARTMENT, A SUBJECT WAS ARRESTED IN NOVEMBER 1995, AFTER TRAVELING FROM HIS HOME IN MINNEAPOLIS, MINNESOTA, TO TAMPA, FLORIDA, FOR PURPOSES OF HAVING SEX WITH WHAT HE THOUGHT WAS A 13-YEAR OLD JUVENILE WHOM HE HAD MET THROUGH AN ON-LINE BULLETIN BOARD SYSTEM. IN REALITY, THE "VICTIM" IN THIS CASE WAS AN UNDERCOVER FBI AGENT. THIS SUBJECT, WHO WAS MARRIED AND THE PARENT OF FIVE CHILDREN, WAS CONVICTED IN FEDERAL COURT. FINALLY, ON-LINE CHAT ROOMS, INTERNET NEWS GROUPS -- ELECTRONIC FORUMS THAT CATER TO SPECIAL INTERESTS AND TOPICS -- AND E-MAIL ARE USED ON A DAILY BASIS BY PEDOPHILES FOR TRADING AND DISTRIBUTING CHILD PORNOGRAPHY. THESE SITES ARE OFTEN FILLED TO CAPACITY BY USERS THROUGHOUT THE DAY. THE AVAILABILITY OF LOW COST SCANNERS AND SOFTWARE THAT ALLOWS THE CAPTURE OF ORIGINAL STILL PHOTOGRAPHS AND VIDEO IMAGES FROM TELEVISION AND VIDEO RECORDERS AS COMPUTER GRAPHIC IMAGE FILES HAS MADE IT POSSIBLE FOR PEDOPHILES TO TAKE ORIGINAL PORNOGRAPHY AND FACILITATE ITS DISTRIBUTION TO OTHER USERS OF THE INTERNET AND ON-LINE SERVICES, IN JULY 1996, 16 MEMBERS OF A GROUP THAT OFTEN FREQUENTED A CHAT ROOM KNOWN AS THE "ORCHID CLUB" WERE INDICTED IN FEDERAL COURT ON A VARIETY OF CHARGES INVOLVING THE PRODUCTION AND DISTRIBUTION OF CHILD PORNOGRAPHY, AS WELL AS CONSPIRACY. A JOINT INVESTIGATION BY THE FBI, THE UNITED STATES CUSTOMS SERVICE, AND THE UNITED STATES POSTAL INSPECTION SERVICE DETERMINED THAT INDIVIDUALS USED THE CHAT ROOM TO ARRANGE FOR AND TRANSMIT CHILD PORNOGRAPHY. WHILE IN THE CHAT ROOM, THEY ALSO DISCUSSED THEIR INVOLVEMENT AND DESIRES IN MOLESTING CHILDREN. WHAT WAS ESPECIALLY SIGNIFICANT IN THIS CASE WAS THAT MANY OF THOSE CONSPIRATORS LATER ADMITTED ACTIVE PARTICIPATION IN CHILD MOLESTATIONS WITHIN EACH OF THEIR OWN GEOGRAPHIC LOCATIONS. ONE SUBJECT OF THE "ORCHID CLUB" CASE ADMITTED TO HAVING SEXUAL ATTRACTIONS TO GIRLS AGE FOUR TO TEN YEARS OLD. HE ALSO ADMITTED TO WRITING DIARIES OF HIS SEXUAL DESIRES FOR CHILDREN AND TO SECRETLY VIDEOTAPING CHILDREN AT PLAYGROUNDS. DURING A SEARCH OF THIS SUBJECT'S RESIDENCE, INVESTIGATORS FOUND APPROXIMATELY 700 FLOPPY DISKETTES, 100 VIDEOTAPES, DIARIES, WRITINGS, BOOKS, MAGAZINES, CLIPPINGS, AND RELATED MATERIALS THAT INDICATED THE SUBJECT'S SEXUAL INTEREST IN CHILDREN. "INNOCENT IMAGES" IN 1994, THE FBI INITIATED AN INNOVATIVE AND PROACTIVE INVESTIGATION, DESIGNATED AS "INNOCENT IMAGES," TO FOCUS ON THE SEXUAL EXPLOITATION OF CHILDREN THROUGH THE INTERNET AND ON-LINE SERVICES. THIS INVESTIGATION GREW OUT OF OUR EXPERIENCE IN THE MAY 1993 DISAPPEARANCE OF GEORGE STANLEY BURDYNSKI, JR., A 13-YEAR OLD, IN PRINCE GEORGE'S COUNTY, MARYLAND. IN THE COURSE OF THE BURDYNSKI INVESTIGATION, FBI AGENTS AND PRINCE GEORGE'S COUNTY POLICE DETECTIVES IDENTIFIED TWO SUSPECTS WHO HAD SEXUALLY EXPLOITED NUMEROUS JUVENILE MALES OVER A 25-YEAR PERIOD. INVESTIGATION OF THESE TWO SUSPECTS DETERMINED THAT BOTH ADULTS AND JUVENILES WERE ROUTINELY USING COMPUTERS TO TRANSMIT IMAGES OF MINORS SHOWING FRONTAL NUDITY OR SEXUALLY EXPLICIT CONDUCT, AS WELL AS TO LURE OTHER MINORS INTO ENGAGING IN ILLICIT SEXUAL ACTIVITY WITH THE SUSPECTS. CONSULTATIONS WITH EXPERTS, BOTH WITHIN THE FBI AND IN THE PRIVATE SECTOR, REVEALED THAT THE USE OF COMPUTER TELECOMMUNICATIONS WAS RAPIDLY BECOMING ONE OF THE MOST PREVALENT TECHNIQUES BY WHICH PEDOPHILES WOULD SHARE PHOTOGRAPHIC IMAGES OF MINORS, AS WELL AS IDENTIFY AND RECRUIT CHILDREN FOR SEXUALLY ILLICIT RELATIONSHIPS. TO COMBAT THE USE OF COMPUTER TELECOMMUNICATIONS BY PEDOPHILES AND SEXUAL PREDATORS, THE FBI AND THE CHILD EXPLOITATION AND OBSCENITY SECTION OF THE DEPARTMENT OF JUSTICE JOINTLY DEVELOPED AN INVESTIGATIVE AND PROSECUTIVE STRATEGY TO IDENTIFY SUBJECTS WHO ORIGINATE, UPLOAD, OR FORWARD CHILD PORNOGRAPHY TO OTHER SUBSCRIBERS THROUGH THE USE OF ON-LINE SERVICE PROVIDERS. OUR HIGHEST PRIORITY IS ON THOSE INDIVIDUALS WHO INDICATE A WILLINGNESS TO TRAVEL FOR THE PURPOSE OF ENGAGING IN SEXUAL ACTIVITY WITH A JUVENILE AND THOSE WHO ARE DISTRIBUTORS OF CHILD PORNOGRAPHY. AS OF MARCH 5, 1997, THE "INNOCENT IMAGES" INVESTIGATION HAS GENERATED 200 SEARCH WARRANTS, 40 CONSENT SEARCHES, 81 INDICTMENTS, 33 INFORMATIONS, 91 ARRESTS, AND 83 FELONY CONVICTIONS. THE "INNOCENT IMAGES" TASK FORCE IS STAFFED BY AGENTS OF THE FBI'S BALTIMORE, MARYLAND, FIELD OFFICE, OTHER FEDERAL AGENCIES, AND INVESTIGATORS FROM SURROUNDING STATE AND LOCAL JURISDICTIONS IN MARYLAND, VIRGINIA, AND THE DISTRICT OF COLUMBIA. HOWEVER, IT IS ESTIMATED THAT 95 PERCENT OF THE SUBJECTS IDENTIFIED BY THE "INNOCENT IMAGES" INVESTIGATION RESIDE IN OTHER STATES. THE "INNOCENT IMAGES" INVESTIGATION HAS ALLOWED THE FBI AND THE DEPARTMENT OF JUSTICE TO DEVELOP THE INVESTIGATIVE TECHNIQUES NEEDED TO ADDRESS CHILD PORNOGRAPHY AND OTHER CRIMES IN CYBERSPACE. THESE TECHNIQUES FULLY TAKE INTO ACCOUNT THE ATTORNEY GENERAL'S GUIDELINES FOR CRIMINAL INVESTIGATIONS, INCLUDING FEDERAL STATUTES THAT APPLY TO ELECTRONIC COMMUNICATIONS AND THE PUBLIC'S FIRST AMENDMENT RIGHTS. THE SEARCH WARRANTS, SEIZURES OF COMPUTER EQUIPMENT, AND CONVICTIONS RESULTING FROM THE "INNOCENT IMAGES" ARE PUTTING PEDOPHILES AND CRIMINALS ON NOTICE THAT THESE CRIMES ARE BEING INVESTIGATED AND PROSECUTED. THEY ALSO SERVE TO DETER OTHERS WHO MAY CONSIDER ENGAGING IN SUCH ILLICIT ACTS. THIS ONGOING INVESTIGATION ALSO PROVIDES US WITH EXTENSIVE BACKGROUND AND INTELLIGENCE ON HOW PEDOPHILES AND SEXUAL PREDATORS USE AND MANIPULATE THE INTERNET AND ON-LINE SERVICES; HOW THEY SEARCH FOR, TARGET, AND RECRUIT VICTIMS; AND HOW THEY TRY TO EVADE NOTICE BY LAW ENFORCEMENT. FOR EXAMPLE, SOME PEDOPHILES NOW POST THEIR SOLICITATIONS IN LEGITIMATE NEWS GROUPS AND BULLETIN BOARDS KNOWING THAT LAW ENFORCEMENT IS AWARE OF THE MORE OBVIOUS SITES FREQUENTED BY PEDOPHILES. CHILD ABDUCTIONS EACH YEAR, AS MANY AS 300 CHILDREN ARE ABDUCTED BY STRANGERS AND EITHER MURDERED, RANSOMED, TAKEN WITH INTENT TO KEEP, OR DETAINED AT LEAST OVERNIGHT. A SUBSTANTIALLY LARGER NUMBER OF CHILDREN, AS MANY AS 4,600 EACH YEAR, ARE VICTIMS OF RELATIVELY SHORT-TERM ABDUCTIONS, A LARGE MAJORITY OF WHICH ARE SEXUALLY MOTIVATED. THESE NONFAMILY ABDUCTIONS POSE AN ENORMOUS CHALLENGE FOR LAW ENFORCEMENT. EACH REPORTED OR SUSPECTED CHILD ABDUCTION PRESENTS COMPLEX AND UNIQUE CIRCUMSTANCES WITH RESPECT TO JURISDICTIONAL ISSUES, LOCAL LIAISON, LOCAL LAW ENFORCEMENT EXPERTISE, AND OTHER CONSIDERATIONS. EXPERIENCE AND RESEARCH HAVE UNDERSCORED THE CRUCIAL NEED FOR AN IMMEDIATE RESPONSE TO ACTUAL OR SUSPECTED CHILD ABDUCTIONS, AND TO MYSTERIOUS DISAPPEARANCES THAT OCCUR UNDER CIRCUMSTANCES SUGGESTING A CHILD MAY HAVE BEEN ABDUCTED. THE FBI'S RESPONSE TO A REPORTED ABDUCTION OR MYSTERIOUS DISAPPEARANCE MAY BE IN THE FORM OF A FULL INVESTIGATION BASED ON A REASONABLE INDICATION THAT A VIOLATION OF THE FEDERAL KIDNAPING STATUTE HAS OCCURRED, OR IT MAY TAKE THE FORM OF A PRELIMINARY INQUIRY IN ORDER TO DETERMINE IF THAT STATUTE HAS BEEN VIOLATED. IN EITHER CASE, THE FBI RESPONSE IS IMMEDIATE AND COMPREHENSIVE. CHILD ABUSE ON GOVERNMENT AND INDIAN RESERVATIONS ANOTHER FOCUS OF THE CRIMES AGAINST CHILDREN INITIATIVE IS CHILD ABUSE ON GOVERNMENT AND INDIAN RESERVATIONS. INVESTIGATIONS OF CHILD SEXUAL ABUSE ON INDIAN RESERVATIONS ARE AMONG THE MOST SENSITIVE CASES WORKED BY THE FBI. IN FISCAL YEAR 1996, THE FBI INVESTIGATED 1,148 CASES INVOLVING THE SEXUAL AND/OR PHYSICAL ABUSE OF CHILDREN, WHICH IS AN INCREASE OF 74 PERCENT WHEN COMPARED TO THE 660 CASES INVESTIGATED DURING FISCAL YEAR 1994. WHILE INDIAN CHILD AND ADOLESCENT ABUSE AND NEGLECT ARE ISSUES OF WIDESPREAD CONCERN, NO RELIABLE STATISTICS EXIST REGARDING THEIR PREVALENCE. IN 1995, 21 TRIBES IN ARIZONA REPORTED 115 CASES OF CHILD MOLESTATION AND SEXUAL CONTACT WITH A MINOR. FOR THE PERIOD JULY 1995 TO JULY 1996, THE NAVAJO NATION DIVISION OF SOCIAL SERVICES REPORTED 626 CASES OF CHILD SEXUAL ABUSE. IN THE 626 CASES REPORTED, 174 WERE SUBSTANTIATED. IN 22 OF THE 174 CASES, SUBSTANCE ABUSE WAS INVOLVED. A STRATEGY CURRENTLY BEING USED IN FBI FIELD OFFICES TO RESPOND TO THESE CASES IS THE FORMATION OF MULTIDISCIPLINARY TEAMS THAT INCLUDE A SPECIAL AGENT, TRIBAL OR BUREAU OF INDIAN AFFAIRS INVESTIGATOR, SOCIAL WORKER, CLINICAL PSYCHOLOGIST, A VICTIM/WITNESS COORDINATOR, AND AN ASSISTANT UNITED STATES ATTORNEY. USING A TEAM EFFORT TO INVESTIGATE CHILD ABUSE ALLEGATIONS FACILITATES THE SUCCESSFUL PROSECUTION OF THE CHILD'S ABUSER, WHILE THE CHILD IS PROTECTED FROM FURTHER VICTIMIZATION. THE FBI ALSO PROVIDES ADVANCED TRAINING TO BUREAU OF INDIAN AFFAIRS INVESTIGATORS AND TRIBAL POLICE OFFICERS IN AN EFFORT TO IMPROVE DELIVERY OF LAW ENFORCEMENT SERVICES ON INDIAN RESERVATIONS; ENHANCE THE IDENTIFICATION, PRESERVATION, AND COLLECTION OF EVIDENCE AT CRIME SCENES; AND ESTABLISH CLOSER WORKING RELATIONSHIPS AND PARTNERSHIPS BETWEEN THE AGENCIES RESPONSIBLE FOR INVESTIGATING CRIMES COMMITTED IN INDIAN COUNTRY. PARENTAL/FAMILY CUSTODIAL KIDNAPING PARENTAL/FAMILY CUSTODIAL KIDNAPING REFER TO THOSE SITUATIONS WHERE A FAMILY MEMBER TAKES A, CHILD OR FAILS TO RETURN A CHILD AT THE END OF AN AGREED UPON VISIT IN VIOLATION OF A CUSTODY AGREEMENT OR DECREE. A 1988 NATIONAL INCIDENCE STUDY ON MISSING, ABDUCTED, RUNAWAY, AND THROWN AWAY CHILDREN ESTIMATED THAT OVER 354,000 CHILDREN EACH YEAR MAY BE VICTIMS OF PARENTAL/FAMILY ABDUCTION. WITHIN THAT LARGE GROUP, IT WAS ESTIMATED THAT OVER 163,000 CHILDREN WERE TRANSPORTED INTERSTATE OR INTERNATIONALLY IN AN ATTEMPT TO CONCEAL OR PREVENT CONTACT WITH THE CHILD, OR THE ABDUCTOR INTENDED TO KEEP THE CHILD OR PERMANENTLY CHANGE CUSTODIAL PRIVILEGES. IT IS THIS LATTER GROUP OF VICTIMS AND VIOLATORS IN WHICH THE FBI TYPICALLY BECOMES INVOLVED. MOST OF THE VICTIMS OF PARENT/FAMILY ABDUCTIONS ARE YOUNG; 33 PERCENT WERE BETWEEN 2 AND 5 YEARS OLD, AND 28 PERCENT WERE BETWEEN 6 AND 9 YEARS OLD. MOST WERE RETURNED WITHIN A WEEK; 62 PERCENT WERE RETURNED IN 6 DAYS OR LESS, AND 28 PERCENT WERE RETURNED IN 24 HOURS OR LESS. FOR OVER HALF OF THE CHILDREN ABDUCTED BY A FAMILY MEMBER, THEIR CARETAKER KNEW THEIR WHEREABOUTS MORE THAN HALF OF THE TIME THEY WERE AWAY FROM HOME. THREE KEY LAWS WERE ENACTED TO ADDRESS INTERSTATE AND INTERNATIONAL PARENTAL CHILD ABDUCTIONS: THE UNIFORM CHILD CUSTODY JURISDICTION ACT, THE PARENTAL KIDNAPING PREVENTION ACT, AND THE HAGUE CONVENTION ON CIVIL ASPECTS OF INTERNATIONAL CHILD ABDUCTION. CHILD SUPPORT RECOVERY ACT CRIMINAL NONSUPPORT HAS BECOME A HIGH-PROFILE ISSUE, WITH NONSUPPORT BEING VIEWED AS AN INCREASING THREAT TO THE CHILDREN, IN PARTICULAR, WHO ARE DENIED THE BENEFITS AND OPPORTUNITIES OF LAWFUL FINANCIAL SUPPORT, AND TO SOCIETY, AS A WHOLE, WHICH IS OFTEN REQUIRED TO BEAR THE FINANCIAL BURDEN OF PROVIDING BASIC SUPPORT AND SERVICES FOR CHILDREN AS A RESULT OF NONSUPPORT. SOME STATES HAVE LOCAL REMEDIES THAT INCLUDE A FELONY PROSECUTION FOR FAILING TO PAY CHILD SUPPORT, WHICH IN SOME CASES WOULD BE PREFERABLE TO THE PROSECUTION OF A FEDERAL MISDEMEANOR OFFENSE. HOWEVER, MANY STATES EITHER DO NOT HAVE A FELONY OFFENSE OR VIEW THE FEDERAL CHILD SUPPORT RECOVERY ACT AS AN ADDITIONAL TOOL TO BE USED IN THE AREA OF CHILD SUPPORT ENFORCEMENT, AND THEY RELY UPON FEDERAL ASSISTANCE. THE FBI ACTIVELY PARTICIPATES WITH THE UNITED STATES ATTORNEYS, THE CRIMINAL DIVISION OF THE DEPARTMENT OF JUSTICE, THE OFFICE OF INSPECTOR GENERAL FOR THE DEPARTMENT OF HEALTH AND HUMAN SERVICES, THE UNITED STATES MARSHALS' SERVICE, AND OTHER FEDERAL, STATE, AND LOCAL AGENCIES TO ENSURE COMPLIANCE WITH THE CHILD SUPPORT RECOVERY ACT, TO COORDINATE PROGRAM EFFORTS, AND TO OBTAIN MAXIMUM BENEFITS FROM RESOURCES AVAILABLE FOR THESE CASES. VIOLENT CRIMES AGAINST YOUTH VIOLENT CRIMES AGAINST YOUTH IS ANOTHER FOCUS OF THE CRIMES AGAINST CHILDREN INITIATIVE. OUR NATION'S YOUTH ARE INCREASINGLY FINDING THEMSELVES THE VICTIMS OF VIOLENT AND SERIOUS CRIMES. THE GROWTH IN VIOLENT CRIMES AGAINST CHILDREN IS MOST DISTURBING:
A 1992 STUDY FOUND THAT ABUSED OR NEGLECTED CHILDREN WERE 53 PERCENT MORE LIKELY TO BE ARRESTED AS JUVENILES AND WERE 38 PERCENT MORE LIKELY TO BE ARRESTED FOR VIOLENT CRIME. THIS STUDY ALSO REPORTED THAT 75 PERCENT OF CHRONIC VIOLENT DELINQUENTS SUFFERED SERIOUS CHILD ABUSE BY A FAMILY MEMBER AND THAT 80 PERCENT WITNESSED EXTREME ACTS OF VIOLENCE. THE NATION'S CHANGING DEMOGRAPHICS INDICATE THAT THIS PROBLEM MAY BECOME EVEN MORE CHALLENGING IN THE YEARS AHEAD. BY 2010, THE JUVENILE POPULATION IS EXPECTED TO REACH 74 MILLION, AN INCREASE OF SEVEN PERCENT FROM 1995. YOUTH VIOLENCE AND VIOLENCE AGAINST YOUTH ARE EXPECTED TO INCREASE APPRECIABLY. FOR THE FBI AND OTHER LAW ENFORCEMENT AGENCIES, THERE WILL BE THE SPECIAL CHALLENGES OF ADDRESSING CHILD-VICTIMIZATION AND ENCOUNTERING JUVENILE OFFENDERS MORE FREQUENTLY. FBI RESPONSE AND CAPABILITIES LET ME DESCRIBE SOME OF THE STEPS THE FBI HAS TAKEN TO ADDRESS EACH OF THESE CRIME PROBLEMS AND SOME OF THE CAPABILITIES THE FBI POSSESSES TO MEET THESE CHALLENGES. AS I INDICATED EARLIER, THE FBI HAS BEGUN A COMPREHENSIVE "CRIMES AGAINST CHILDREN INITIATIVE." UNDER THIS INITIATIVE, THE FBI HAS CONSOLIDATED ALL INVESTIGATIVE OPERATIONS AND ADMINISTRATIVE MATTERS INVOLVING CHILD VICTIMIZATION. AT FBI HEADQUARTERS, I HAVE ESTABLISHED TWO OFFICES WITHIN OUR CRIMINAL INVESTIGATIVE DIVISION -- THE OFFICE OF CRIMES AGAINST CHILDREN AND THE OFFICE OF INDIAN COUNTRY INVESTIGATIONS -- TO PLAN, MANAGE, AND COORDINATE OUR NATIONWIDE EFFORTS UNDER THE CRIMES AGAINST CHILDREN INITIATIVE NATIONWIDE, THERE ARE 56 FBI FIELD OFFICES LOCATED IN MAJOR CITIES ACROSS THE UNITED STATES ALONG WITH APPROXIMATELY 400 RESIDENT AGENCIES IN SMALLER CITIES AND TOWNS. THIS EXTENSIVE FIELD ORGANIZATION, ALONG WITH OVER 11,300 AUTHORIZED AGENTS, PROVIDES THE FBI WITH A UNIQUE FEDERAL LAW ENFORCEMENT CAPABILITY IN THESE TYPES OF CASES. THE BALTIMORE, LOS ANGELES, SAN FRANCISCO, DALLAS, AND LAS VEGAS FIELD OFFICES HAVE SUCCESSFULLY JOINED OTHER LAW ENFORCEMENT AGENCIES IN FORMING INTERAGENCY TASK FORCES OR NETWORKS TO CREATE MULTIDISCIPLINARY TEAMS TO ADDRESS CHILD ABDUCTIONS, SEXUAL EXPLOITATION OF CHILDREN, AND OTHER CRIMES AGAINST CHILDREN. SEVERAL COMPONENTS OF THE FBI'S CRITICAL INCIDENT RESPONSE GROUP ARE OFTEN CALLED UPON TO SUPPORT CASES INVOLVING SEXUAL PREDATORS AND PEDOPHILES. THE CHILD ABDUCTION AND SERIAL KILLER UNIT WAS ESTABLISHED TO PROVIDE SPECIALIZED INVESTIGATIVE SUPPORT SERVICES TO THIS CATEGORY OF INVESTIGATIONS. ADDITIONALLY, IN COMPLIANCE WITH THE VIOLENT CRIME ACT OF 1994, THE FBI ESTABLISHED THE MORGAN P. HARDIMAN TASK FORCE ON MISSING AND EXPLOITED CHILDREN AS PART OF THE UNIT. THE HARDIMAN TASK FORCE BRINGS TOGETHER AGENTS AND INVESTIGATORS FROM SEVEN FEDERAL AGENCIES - THE FBI, THE DRUG ENFORCEMENT ADMINISTRATION, THE UNITED STATES MARSHALS' SERVICE, THE UNITED STATES SECRET SERVICE, THE UNITED STATES POSTAL INSPECTION SERVICE, THE UNITED STATES CUSTOMS SERVICE, AND THE BUREAU OF ALCOHOL, TOBACCO, AND FIREARMS -- TO SERVE AS A RESOURCE FOR STATE AND LOCAL LAW ENFORCEMENT AGENCIES REQUIRING ASSISTANCE IN A MISSING CHILD INVESTIGATION. THE CHILD ABDUCTION AND SERIAL KILLER UNIT PROVIDES PROFILING SERVICES TO FEDERAL, STATE, LOCAL, AND, ON OCCASION, FOREIGN LAW ENFORCEMENT THAT ARE OFTEN USED TO DIRECT AND GUIDE INVESTIGATIVE EFFORTS. THE UNIT ALSO ASSISTS AGENTS AND INVESTIGATORS BY DEVELOPING STRATEGIES FOR INTERVIEWING PERSONS SUSPECTED OF CRIMES AGAINST CHILDREN BASED UPON INFORMATION KNOWN ABOUT THE CRIME AND THE SUSPECT. THE UNIT ALSO COORDINATES THE SERVICES OF THE VIOLENT CRIMINAL APPREHENSION PROGRAM (VICAP). THROUGH VICAP, THE FBI PROVIDES PROFILING ASSISTANCE IN SERIAL CRIMES TO OTHER LAW ENFORCEMENT AGENCIES. ALONG WITH MEMBERS OF THE HARDIMAN TASK FORCE, THE UNIT PROVIDES ON-SCENE ADVICE TO STATE AND LOCAL OFFICERS. WORKING TOGETHER, THE UNIT AND TASK FORCE FACILITATE THE USE OF FEDERAL AGENCY RESOURCES AND CAPABILITIES, WHERE APPROPRIATE, TO ASSIST STATE AND LOCAL AGENCIES. ON A DAILY BASIS, THE MEMBERS OF THIS UNIT AND THE HARDIMAN TASK FORCE WORK CLOSELY WITH THE NATIONAL CENTER FOR MISSING AND EXPLOITED CHILDREN. THE RECENTLY ESTABLISHED COMPUTER INVESTIGATIONS AND INFRASTRUCTURE THREAT ASSESSMENT CENTER (CITAC) WILL BE A SOURCE OF EXPERT COMPUTER SUPPORT TO CASES INVOLVING THE INTERNET. THE FBI LABORATORY PROVIDES A WIDE RANGE OF SERVICES THAT ARE USED IN THESE TYPES OF INVESTIGATIONS. FOR EXAMPLE, IN THE POLLY KLAAS CASE, FBI EVIDENCE SPECIALISTS USED ADVANCED FORENSIC TECHNOLOGIES TO DISCOVER THE PALM PRINT OF RICHARD ALLEN DAVIS ON POLLY KLAAS' BEDROOM WALL. THIS EVIDENCE WAS CRUCIAL TO THE CALIFORNIA STATE PROSECUTION AND CONVICTION OF DAVIS FOR THE ABDUCTION AND MURDER OF POLLY KLAAS. COMPUTER ANALYSIS RESPONSE TEAM (CART) AGENTS AND TECHNICIANS, TRAINED UNDER THE AUSPICES OF THE FBI LABORATORY, ASSIST IN THE SEARCH AND EXAMINATION OF COMPUTER AND TELECOMMUNICATIONS EQUIPMENT USED BY PEDOPHILES AND SEXUAL PREDATORS. PEDOPHILES AND SEXUAL PREDATORS ARE OFTEN VERY COMPUTER SAVVY AND USE ADVANCED TECHNIQUES TO PROTECT THEMSELVES FROM BEING DETECTED BY LAW ENFORCEMENT. THE FBI LABORATORY MAINTAINS A CHILD PORNOGRAPHY REFERENCE LIBRARY THAT SUPPORTS INVESTIGATORS IN TRACING THE SOURCE OF IMAGES AND MATERIALS. ANOTHER IMPORTANT FORENSIC TOOL IS THE FBI'S COMBINED DNA INFORMATION SYSTEM (CODIS) THAT SERVES AS A NATIONAL INDEX CONTAINING DNA PROFILES FROM CONVICTED OFFENDERS AND UNSOLVED CRIMES. CURRENTLY, THERE ARE 62 FORENSIC LABORATORIES IN 30 STATES AND THE DISTRICT OF COLUMBIA THAT ARE PART OF THE CODIS NETWORK. WE ARE HOPING TO ADD ANOTHER 22 STATE AND LOCAL FORENSIC LABORATORIES TO THE CODIS NETWORK THIS YEAR. OUR INFORMATION RESOURCES DIVISION PROVIDES CRITICAL AUTOMATION SERVICES TO SUPPORT INVESTIGATIONS OF CHILD PORNOGRAPHY AND OTHER CRIMES AGAINST CHILDREN. THESE SERVICES INCLUDE THE RAPID START TEAM, WHICH IS DEPLOYED TO CITIES WHERE A CHILD ABDUCTION OR SIMILAR CRIME HAS BEEN COMMITTED AND THERE ARE LARGE VOLUMES OF INFORMATION THAT MUST BE COMPUTERIZED, INDEXED, AND MADE AVAILABLE FOR ANALYSIS FOR THE INVESTIGATORS. CRIMES AGAINST CHILDREN INVESTIGATIONS OFTEN GENERATE MULTITUDES OF LEADS FROM CONCERNED CITIZENS. RAPID START PROVIDES INVESTIGATORS WITH CRITICAL AND TIMELY INFORMATION MANAGEMENT CAPABILITIES. THIS DIVISION ALSO PROVIDES NECESSARY TECHNICAL SERVICES AND SUPPORT, SUCH AS RADIOS, COMMUNICATIONS, AND ELECTRONIC SURVEILLANCE, TO JOINT TASK FORCES OPERATIONS. OUR CRIMINAL JUSTICE INFORMATION SERVICES DIVISION OPERATES AND MAINTAINS THE NATIONAL CRIME INFORMATION CENTER (NCIC), WHICH INCLUDES FILES FOR MISSING PERSONS AND UNIDENTIFIED PERSONS. THROUGH NCIC, THE FBI ALSO MAKES AVAILABLE CRIMINAL HISTORY DATA THAT IS CONTAINED IN THE INTERSTATE IDENTIFICATION INDEX. ADDITIONALLY, THE FBI HAS ESTABLISHED AN INTERIM CAPABILITY FOR A NATIONAL SEXUAL PREDATOR AND CHILD MOLESTER REGISTRATION SYSTEM, AS MANDATED BY PRESIDENT CLINTON IN EXECUTIVE ORDER 137789 AND THE PAM LYNCHER SEXUAL OFFENDER TRACKING AND IDENTIFICATION ACT OF 1996. AN INTERIM CAPABILITY BECAME OPERATIONAL IN FEBRUARY 1997. A PERMANENT SEXUAL OFFENDER REGISTRY FILE, WHICH WILL INCLUDE THE CAPABILITY TO ELECTRONICALLY TRANSMIT PHOTOGRAPHS OF REGISTERED SEX OFFENDERS, IS BEING DEVELOPED WITHIN THE NCIC 2000 SYSTEM THAT IS EXPECTED TO BECOME OPERATIONAL IN JULY 1999. FINALLY, OUR OVERSEAS LEGAL ATTACHES SUPPORT CHILD EXPLOITATION CASES. FOR EXAMPLE, OUR LEGAL ATTACHE OFFICES IN LONDON AND BONN ASSISTED THE "INNOCENT IMAGES" INVESTIGATION BY FACILITATING THE DISSEMINATION OF EVIDENCE REGARDING SUBJECTS WHO RESIDED IN ENGLAND AND GERMANY THAT WERE RECEIVING AND TRANSMITTING CHILD PORNOGRAPHY THROUGH AN AMERICAN COMMERCIAL ON-LINE SERVICE. AUSTRIAN AUTHORITIES HAVE PROVIDED THE FBI WITH EVIDENTIARY IMAGES OBTAINED FROM THE INTERNET AS PART OF THEIR EFFORTS TO IDENTIFY INDIVIDUALS TRANSMITTING CHILD PORNOGRAPHY. FBI LEGAL ATTACHES ALSO SERVE AS A READY RESOURCE FOR INVESTIGATIONS IN FOREIGN COUNTRIES IN CASES INVOLVING INTERNATIONAL PARENTAL KIDNAPINGS. CONCLUSION PROTECTING OUR CHILDREN FROM BECOMING THE VICTIMS OF CRIME IS EVERYONE'S RESPONSIBILITY. IT IS A TOUGH RESPONSIBILITY FOR PARENTS, NEIGHBORS, TEACHERS, COACHES, CLERGY, AND PUBLIC OFFICIALS. IT IS A RESPONSIBILITY THAT REQUIRES CONSTANT VIGILANCE AND PERSEVERANCE. VIOLENT CRIMES COMMITTED AGAINST CHILDREN ARE AMONG THE MOST EMOTIONAL AND DEMANDING CASES THAT INVESTIGATORS AND PROSECUTORS MUST FACE, LET ME ASSURE YOU THAT THE FBI, AS WELL AS EVERYONE IN THE DEPARTMENT OF JUSTICE, ACCEPTS ITS RESPONSIBILITIES IN THIS AREA SERIOUSLY AND WHOLEHEARTEDLY. OUR COMMITMENT IS TO WORK CLOSELY TOGETHER ON ALL SUCH CASES THAT ARE BROUGHT TO US FOR INVESTIGATION SO THAT PERSONS WHO PREY UPON OUR NATION'S CHILDREN CAN BE BROUGHT BEFORE THE BAR OF JUSTICE TO ANSWER FOR THESE OFFENSES. THIS CONCLUDES MY PREPARED REMARKS. I WOULD LIKE TO RESPOND TO ANY QUESTIONS THAT YOU MAY HAVE. |