Online child safety — especially the fear of predators lurking on social networking sites (SNS) — continues to spur calls by state and federal lawmakers for regulation.  At first, some federal lawmakers advocated outright bans on SNS in schools and libraries via the Deleting Online Predators Act (DOPA).  Meanwhile, state and local lawmakers — specifically state Attorneys General (AGs) — have been even more vociferous in their calls for regulation in the form of mandatory age verification for social networking sites, which would cover a broad swath of online sites and activities according to their definitions of SNS. But the question that ultimately gets lost in this debate is: Just how much risk do social networking sites really pose for teens?  Which risks are real and which are overblown? And what’s the best way to deal with the risks that we find to be legitimate?

Nancy Willard devotes her life to answering those questions. Willard is one of America’s leading experts on online safety and risk prevention. She runs the Center for Safe and Responsible Internet Use and she is the author of two outstanding books, Cyberbullying and Cyberthreats and Cyber-Safe Kids, Cyber-Savvy Teens.  In my opinion, Willard’s general approach to online child safety is the most enlightened, level-headed, and likely to be effective. That’s because Willard focuses on putting fears in perspective, identifying the actual risks that kids face online, and devising sensible strategies to deal with risks and problems as they are discovered. Her approach is holistic and built upon sound data, targeted risk-identification strategies, and time-tested education and mentoring methods. For my money, it’s the most sensible approach to online safety issues. In fact, when other parents ask me for “just one thing” to read on the topic, I usually recommend Willard’s work — especially her amazing book Cyber-Safe Kids, Cyber-Savvy Teens. And her background in early childhood education, special education for “at risk” children with emotional and behavior difficulties, as well as experience in computer law, means she is uniquely suited to be analyzing these issues.  In sum, this is woman we should all be closely listening to on these issues.

Recently, Willard has been responding to criticisms that state AGs have leveled against the Internet Safety Technical Task Force (ISTTF) and its final report. [Disclaimer: I was a member of the ISTTF.] I’ve already outlined the ISTTF’s work at length here, but the three key takeaways from the report were that:

1. the risk of predation on social network sites has been over-stated; the data suggest that cyber-bullying is the bigger problem on SNS;
2. there is no silver-bullet technical solution to online child safety concerns, and mandatory age verification, in particular, would not make kids safer online but could even create bigger problems in the long-run;
3. education and empowerment are the real keys to keeping kids safer online.

The response from some state AGs to these findings was quite hostile, with some arguing that the ISTTF did not take online risks seriously enough, or that we relied on “outdated and inadequate” data in reaching our conclusions.  Willard addresses those arguments in a new white paper: “Research that is ‘Outdated and Inadequate?’ An Analysis of the Pennsylvania Child Predator Unit Arrests in Response to Attorney General Criticism of the Berkman Task Force Report.”  In this study, she analyzes data from arrest records from Pennsylvania’s Child Predator Unit to determine exactly how these individuals were operating online. Although it’s just one state’s worth of data — that’s all that seems to have been made publicly available in a single database at this time — it can give us a clue to what might be going on out there. The results are illuminating.

Here’s what Willard found:

The search yielded 143 responses. As noted by the Attorney General, 183 predators had been arrested. All of these arrests were described in the press releases dated from March 21, 2005 to January 13, 2009 – thus allowing for a full analysis of the arrests of sexual predators in the state Pennsylvania for the last 4 years by the Attorney General’s Child Predator Unit. The analysis of the arrests that involved predatory actions, excluding the arrests for child pornography, revealed the following:

• Only 8 incidents involved actual teen victims with whom the Internet was used to form a relationship.
  • In 4 of these incidents, teens or parents reported the contact. The other 4 cases were discovered in an analysis of the computer files of a predator who had been arrested in a sting operation. Five of the cases had led to inappropriate sexual contact. The other situations were discovered prior to any actual contact.
• There were 166 arrests as a result of sting activities where the predator contacted an undercover agent who was posing as a 12 – 14 year old, generally a girl.
  • The vast majority of the stings, 144, occurred in chat rooms. Eleven stings occurred through instant messaging. Nine of the arrests failed to specify the location, but the description bore significant similarity to the chat room incidents. One involved an advertisement that had been placed on Craig’s List.
  • There were only 12 reports of predators being deceptive about their age.
  • The descriptions of these chats incidents bear out what the research reviewed by the [ISTTF’s] Research Advisory Board found – that online predators are rarely deceptive about their interests.

Specifically,”Because the attorneys general have been focusing their attention on the social networking sites, MySpace and Facebook,” Willard made sure to give “special attention to any case that mentioned any activity occurring on either of these two sites.” Here’s what she found in that regard:

• One of the incidents involving an actual teen victim, communications took place on MySpace. This was a rearrest of a person who had already been arrested through a sting.
• A police officer who was arrested for sexual abuse of many teens with whom he had interacted with in the line of duty also had a MySpace account with friendship links to teen girl, but there was no assertion that these communications had led to sexual activity.
• One predator in a sting provided the agent with a link to his Facebook page.
• In 5 of the stings that took place in a chat room, reference was made to the fact that the predator had either looked at the teen’s MySpace account or suggested the teen look at his profile.

Importantly, Willard points out, “Despite the establishment of one or more public profiles on MySpace [by the PA Child Predator Unit], there has apparently not been one successful sting operation initiated on MySpace in the more than two years during which these sting profiles have been in existence.”

From these findings, Willard concludes that:

The insight gained through an analysis of the Pennsylvania Attorney General’s press releases on arrests for online sexual predation provide strong support for the validity of the conclusions of the Berkman Research Advisory Board and demonstrate the need for greater collaboration between law enforcement and researchers to address the actual risks to young people from sexual predators online.

In other words, the Pennsylvania data seem to confirm that predation is not as serious of a risk on SNS as some AGs had claimed. “It appears that chat rooms are far less safe than social networking sites and that there is limited inclination and ability of predators to use social networking sites to contact potential teen victims,” Willard notes. Consequently, she argues:

Attention must be paid to the obvious risks related to chat room communications, as well as the risk factors that are being manifested by the young people who may still be frequenting these chat rooms, especially the chat rooms where sexual relations are being discussed. It appears that rather than seek ways to discourage teens from participating in social networking sites, these sites are destinations that should be encouraged as much safe than the alternatives. A focus must be placed on improving the protective features of chat rooms that are frequented by minors.

We need to know more about which chat rooms are in question and why some youth visit those chat rooms. More importantly, how can we develop sensible messages for youth about the dangers of chat rooms that are targeted to adults and adult sexual activity?

But it is vitally important not to lose sight of the big picture here. As Willard summarizes it:

The incidents of online sexual predation are rare. Far more children and teens are being sexually abused by family members and acquaintances. It is imperative that we remain focused on the issue of child sexual abuse – regardless of how the abusive relationship is initiated.

Indeed, volumes of research on child abuse, child predation, and child abduction all point to this same conclusion: Your kids are actually more at risk from known acquaintances — especially family members — than they are from random strangers (including random strangers they might meet online).

Of course, this doesn’t mean we shouldn’t continue to develop sensible educational messages for youth about proper online behavior and how to report legitimate problems or troubling interactions that they experience online. Again, Willard has done this elsewhere and many of us (including those of us involved in the Berkman Center task force) have long been pushing for increased resources for online safety education and media literacy efforts as the first, best step towards improving online youth safety. We need to get AGs and other policymakers to work together with us to get this important task started — now!

Finally, Willard correctly notes that the AGs and other law enforcement agencies need to be willing to release more data like the Pennsylvania AG did such that further analysis of this problem is possible. If the AGs’ primary complaint with the ISTTF report was that the data we used was somewhat dated, then the best solution to that problem is for the AGs and other law enforcement agencies to open up their records to the child safety community so that risk researchers like Willard can get a better feel for what’s going on out there and devise strategies to deal with it.  Unfortunately, there’s still too much horn-locking going on between these communities and, sadly, I think some AGs are using this issue to create an atmosphere of fear for political gain. We need to find ways to communicate actual risks — such as those that kids would face in some specific, adult-oriented chat rooms — without going overboard and making parents and the general public think that there’s a bogeyman on every cyber-corner of the Internet.

[ Further reading: As usual, my friend Anne Collier over at Net Family News.org has done a much better job summarizing an issue than I have. Read her discussion of Nancy Willard’s paper and its implications here.]

The Internet Safety Technical Task Force (ISTTF), which was formed a year ago to study online safety concerns and technologies, today issued its final report to the U.S. Attorneys General who authorized its creation. It was a great honor for me to serve as a member of the ISTTF and I believe this Task Force and its report represent a major step forward in the discussion about online child safety in this country.

The ISTTF was very ably chaired by John Palfrey, co-director of Harvard University’s Berkman Center for Internet & Society, and I just want to express my profound thanks here to John and his team at Harvard for doing a great job herding cats and overseeing a very challenging process. I encourage everyone to examine the full ISTTF report and all the submissions, presentations, and academic literature that we collected. [It’s all here.] It was a comprehensive undertaking that left no stone unturned.

Importantly, the ISTTF convened (1) a Research Advisory Board (RAB),which brought together some of the best and brightest academic researchers in the field of child safety and child development and (2) a Technical Advisory Board (TAB), which included some of America’s leading technologists, who reviewed child safety technologies submitted to the ISTTF. I strongly recommend you closely examine the RAB literature review and TAB assessment of technologies because those reports provide very detailed assessments of the issues. They both represent amazing achievements in their respective arenas.

There are a couple of key takeaways from the ISTTF’s research and final 278-page report that I want to highlight here. Most importantly, like past blue-ribbon commissions that have studied this issue, the ISTTF has generally concluded there is no silver-bullet technical solution to online child safety concerns. The better way forward is a “layered approach” to online child protection. Here’s how we put it on page 6 of the final report:

The Task Force remains optimistic about the development of technologies to enhance protections for minors online and to support institutions and individuals involved in protecting minors, but cautions against overreliance on technology in isolation or on a single technological approach. Technology can play a helpful role, but there is no one technological solution or specific combination of technological solutions to the problem of online safety for minors. Instead, a combination of technologies, in concert with parental oversight, education, social services, law enforcement, and sound policies by social network sites and service providers may assist in addressing specific problems that minors face online. All stakeholders must continue to work in a cooperative and collaborative manner, sharing information and ideas to achieve the common goal of making the Internet as safe as possible for minors.

In sum, education and empowerment are the real keys to keeping kids safer online. We all need to work harder to mentor our children and help them develop the skills and good old fashion common sense to make smart decisions online. Technical tools can supplement — but can never supplant — education, parental guidance, and better mentoring.

Still, this was a task force that primarily came about after state attorneys general (AGs) had been incessantly pressuring social networking sites like MySpace and Facebook to adopt age verification technologies as a solution to online child safety concerns. Specifically, fears about online predators — driven largely by the moral panic whipped up by shows like NBC’s “To Catch a Predator” — prompted calls for mandatory age verification for social networking sites.

So, what did the final ISTTF report have to say about mandatory age verification. Answer: Probably not as much as the AGs were hoping for, and what we did say they may not like to hear.

First, the ISTTF’s Research Advisory Board conclusively proved the primary online safety issue today is peer-on-peer cyber-harassment, not adult predation. Mandatory age verification would do nothing to stop cyberbullying. Indeed, the lack of adult supervision may even exacerbate the problem.

Second, after reviewing various age verification solutions, the ISTTF’s Technical Advisory Board concluded:

Age verification and identity authentication technologies are appealing in concept but challenged in terms of effectiveness. Any system that relies on remote verification of information has potential for inaccuracies. For example, on the user side, it is never certain that the person attempting to verify an identity is using their own actual identity or someone else’s. Any system that relies on public records has a better likelihood of accurately verifying an adult than a minor due to extant records. Any system that focuses on third-party in-person verification would require significant political backing and social acceptance. Additionally, any central repository of this type of personal information would raise significant privacy concerns and security issues.

As a result, our final report concluded that:

The Task Force does not believe that the Attorneys General should endorse any one technology or set of technologies to protect minors online. Instead, the Attorneys General should continue to work collaboratively with all stakeholders in pursuing a multifaceted approach to enhance safety for minors online.

Then, on pages 28-31, we go into more detail about age verification, finding that:

[Age verification] approaches are less effective in the child safety context — in other words, at creating safe environments for minors — than in the context of completing financial transactions or regulating purchases, especially to the extent that identity authentication and age verification focus solely upon adults. The reasons for this include the fact that in the commercial and financial contexts, an adult typically wants to verify his or her identity correctly in order to purchase a product or get access to records. Moreover, when adults purchase regulated items (such as alcohol or tobacco) online, in some cases a second form of age verification occurs when the item is delivered.

The identity authentication and age verification solutions that authenticate or verify only adults could be and are already sometimes used to reduce minors’ access to adult-only sites. Because they do not authenticate or verify minors, however, they cannot be used to create environments for minors that require authentication or verification prior to access. To the extent that an adult nonetheless uses his or her own verifiable information when accessing an environment intended only for minors, these technologies could enhance the ability of Internet service providers and social network sites to exclude that adult. Of course, it seems unlikely that an adult with nefarious purposes would proceed in this manner. Thus, while these types of identity authentication and age verification technologies may be helpful for other purposes, they do not appear to offer substantial help in protecting minors from sexual solicitation.

And there’s far more detail following this passage from the final report, so please read that section for additional discussion.

Again, some AGs may not like to hear all this but these were near-consensus findings of the Task Force. And, if anything, the Task Force probably did not far enough to show why mandatory age verification will not work and how age verification will actually make kids less safe online. In my final statement to the Task Force, this is what I spent my time focusing on. I outlined the dangers of age verification as well as 10 questions about age verification that the AGs must answer if they persist in this pursuit of a technological Holy Grail. I have embedded my entire expanded final statement down below as a Scribd document, but here are the key reasons I believe mandatory age verification represents a dangerous solution to online child safety concerns:

Again, although the Task Force didn’t go quite as far as I would have liked in terms of making clear the dangers associated with mandatory age verification, I think our final report reflects the general skepticism among Task Force members about taking that path or relying too heavily on any single, silver-bullet technical approach to online child safety concerns. Again, this is real progress; a sensible step forward in the discussion about keeping our kids safe online.

I hope policymakers will take a close look at our conclusions and recommendations and take them seriously. We need to stop wasting so much time searching for silver bullets and start getting more serious about how to better mentor our kids so that they can be good — and safe — digital citizens. Education, not regulation, is the key.

Below I have linked to some background essays about the Internet Safety Technical Task Force as well as additional thoughts by fellow task force members or reporters. I’ll add to it as I see new things in coming days.

Additional thoughts / articles about the ISTTF:

• ISTTF director John Palfrey discusses the report on this short podcast with Larry Magid as well as this longer one from the Berkman Center
• ISTTF co-director danah boyd comments on the report on her blog
• ISTTF member Larry Magid of ConnectSafely.org: “Net Threat to Minors Less Than Feared,” CNet News.com
• ISTTF member Anne Collier of Net Family News: “Key Crossroads for Net Safety“
• ISTTF member Stephen Balkam of FOSI featured on an NPR podcast about our work
• ISTTF member John Morris of CDT: “Deconstructing Reaction to Net Safety Task Force Report“
• ISTTF member Marsali Hancock, President of iKeepSafe blog essay about the task force
• AGs respond to report in interview with Emily Steel of the Wall Street Journal: “The Case for Age Verification“
• New York Times article by Brad Stone: “Report Calls Online Threats to Children Overblown“
• Wall Street Journal article by Emily Steel: “No Easy Answer for Protecting Kids Online“
• Associated Press story by Anick Jesdanun: “Panel: Technology Alone Can’t Protect Kids Online“
• Chronicle of Higher Education Wired Campus blog entry by Tracy Mitrano, “Report Weighs the Benefits and Risks of Social Networks,”
• PC World article by Jaikumar Vijayan: “Study Accused of Exaggerating Kids Online Safety“
• PC World blog post by Jaikumar Vijayan: “Are Internet Child Safety Concerns Overblown or Understated?”

Background info:

• an old blog entry of mine about the formation of the task force
• an old paper of mine about the agreement between MySpace and AGs that led to the formation of the ISTTF
• an essay of mine from the ISTTF’s mid-point: “Age Verification Debate Continues; Schools Now at Center of Discussion“
• my big white paper on the dangers of mandatory age verification
• my book: “Parental Controls and Online Child Protection: A Survey of Tools and Methods”
• my final ISTTF statement, which is also embedded below as a Scribd document…