[House Report 119-373]
[From the U.S. Government Publishing Office]
119th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 119-373
=======================================================================
GENERATIVE AI TERRORISM RISK ASSESSMENT ACT
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November 12, 2025.--Committed to the Committee of the Whole House on
the State of the Union and ordered to be printed
----------------
Mr. Garbarino, from the Committee on Homeland Security,
submitted the following
R E P O R T
[To accompany H.R. 1736]
[Including cost estimate of the Congressional Budget Office]
The Committee on Homeland Security, to whom was referred
the bill (H.R. 1736) to require the Secretary of Homeland
Security to conduct annual assessments on terrorism threats to
the United States posed by terrorist organizations utilizing
generative artificial intelligence applications, and for other
purposes, having considered the same, reports favorably thereon
with amendments and recommends that the bill as amended do
pass.
CONTENTS
Page
Purpose and Summary.............................................. 3
Background and Need for Legislation.............................. 3
Hearings......................................................... 4
Committee Consideration.......................................... 4
Committee Votes.................................................. 4
Committee Oversight Findings..................................... 6
C.B.O. Estimate, New Budget Authority, Entitlement Authority, and
Tax Expenditures............................................... 6
Federal Mandates Statement....................................... 7
Duplicative Federal Programs..................................... 7
Statement of General Performance Goals and Objectives............ 7
Congressional Earmarks, Limited Tax Benefits, and Limited Tariff
Benefits....................................................... 7
Advisory Committee Statement..................................... 7
Applicability to Legislative Branch.............................. 7
Section-by-Section Analysis of the Legislation................... 7
The amendments are as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Generative AI Terrorism Risk
Assessment Act''.
SEC. 2. SENSE OF CONGRESS REGARDING THE USE OF GENERATIVE ARTIFICIAL
INTELLIGENCE APPLICATIONS FOR TERRORIST ACTIVITY.
It is the sense of Congress that--
(1) the heightened terrorism threat landscape and the
increasing utilization of generative artificial intelligence by
foreign terrorist organizations represent a national security
threat, and the challenges posed by such threat are not well
understood; and
(2) the Department of Homeland Security, in consultation with
the Office of the Director of National Intelligence, must take
steps to recognize, assess, and address such threat, thereby
reducing risks to the people of the United States.
SEC. 3. ANNUAL ASSESSMENTS ON TERRORISM THREATS TO THE UNITED STATES
POSED BY THE USE OF GENERATIVE ARTIFICIAL INTELLIGENCE FOR
TERRORISM.
(a) Assessments.--
(1) In general.--Not later than one year after the date of
the enactment of this Act and annually thereafter for five
years, the Secretary of Homeland Security, in consultation with
the Director of National Intelligence, shall submit to the
appropriate congressional committees an assessment of terrorism
threats to the United States posed by the use of generative
artificial intelligence for terrorism.
(2) Contents.--Each terrorism threat assessment under
paragraph (1) shall include the following:
(A) An analysis of incidents during the immediately
preceding calendar year in which a foreign terrorist
organization or individual has used or attempted to use
generative artificial intelligence to carry out the
following:
(i) Spread violent extremist messaging and
facilitate the ability to radicalize and
recruit individuals to violence.
(ii) Enhance their ability to develop or
deploy chemical, biological, radiological, or
nuclear weapons.
(B) Recommendations on appropriate measures to
counter terrorism threats to the United States posed by
such terrorist organization or individual.
(3) Coordination.--Each terrorism threat assessment under
paragraph (1)--
(A) shall be coordinated by the Secretary of Homeland
Security to ensure compliance with applicable law and
protections relating to individuals' privacy, civil
rights, and civil liberties, and
(B) may be informed by existing products of the
Department of Homeland Security, as appropriate.
(4) Form.--Each terrorism threat assessment under paragraph
(1) shall be submitted in unclassified form, but may include a
classified annex. The Secretary of Homeland Security shall post
on a publicly available website of the Department of Homeland
Security the unclassified portion of each such assessment. Each
such unclassified portion shall not contain information that is
designated as For Official Use Only, or otherwise would not be
publicly available pursuant to section 552 of title 5, United
States Code (popularly referred to as the ``Freedom of
Information Act'' (FOIA)), or other applicable law.
(5) Briefing.--Not later than 30 days after the submission of
each terrorism threat assessment under paragraph (1), the
Secretary of Homeland Security shall brief the appropriate
congressional committees regarding each such assessment. The
head of any other relevant Federal department or agency shall
join the Secretary for any such briefing if any such committee,
in consultation with the Secretary, determines such is
appropriate.
(b) Information Sharing.--
(1) In general.--The Secretary of Homeland Security shall
review information relating to terrorism threats to the United
States posed by the use of generative artificial intelligence
for terrorism that is gathered by State and major urban area
fusion centers and the National Network of Fusion Centers, and
incorporate such information, as appropriate, into the
Department of Homeland Security's own information relating to
such. The Secretary shall ensure the dissemination to State and
major urban area fusion centers and the National Network of
Fusion Centers of such information.
(2) Coordination.--In carrying out paragraph (1), the
entities specified in paragraph (3) shall share with the
Secretary of Homeland Security information regarding terrorism
threats to the United States posed by the use of generative
artificial intelligence for terrorism.
(3) Entitles specified.--The entities specified in this
paragraph are the following:
(A) The Office of the Director of National
Intelligence.
(B) The Federal Bureau of Investigation.
(C) Members of the intelligence community.
(D) Any other relevant Federal department or agency
the Secretary of Homeland Security determines
necessary.
(c) Definitions.--In this section:
(1) Appropriate congressional committees.--The term
``appropriate congressional committees'' means the Committee on
Homeland Security, the Permanent Select Committee on
Intelligence, and the Committee on Energy and Commerce of the
House of Representatives and the Committee on Homeland Security
and Governmental Affairs, the Select Committee on Intelligence,
and the Committee on Commerce, Science, and Transportation of
the Senate.
(2) Artificial intelligence.--The term ``artificial
intelligence'' has the meaning given such term in section 5002
of the National Artificial Intelligence Initiative Act of 2020
(15 U.S.C. 9401).
(3) Generative artificial intelligence.--The term
``generative artificial intelligence'' means the class of
artificial intelligence models that emulate the structure and
characteristics of input data in order to generate derived
synthetic content, including images, videos, audio, text, and
other digital content.
(4) Foreign terrorist organization.--The term ``terrorist
organization'' means any entity designated as a foreign
terrorist organization pursuant to section 219 of the
Immigration and Nationality Act (8 U.S.C. 1189).
(5) Fusion center.--The term ``fusion center'' has the
meaning given such term in subsection (k) of section 210A of
the Homeland Security Act of 2002 (6 U.S.C. 124h).
(6) Intelligence community.--The term ``intelligence
community'' has the meaning given such term in section 3(4) of
the National Security Act of 1947 (50 U.S.C. 3003(4)).
(7) National network of fusion centers.--The term ``National
Network of Fusion Centers'' means a decentralized arrangement
of fusion centers intended to enhance the ability of individual
State and local fusion centers to leverage the capabilities and
expertise of all such fusion centers for the purpose of
enhancing analysis and homeland security information sharing
nationally.
(8) Terrorism.--The term ``terrorism'' has the meaning given
such term in section 2 of the Homeland Security Act of 2002 (6
U.S.C. 101).
Amend the title so as to read:
A bill to require the Secretary of Homeland Security to
conduct annual assessments on threats to the United States
posed by the use of generative artificial intelligence for
terrorism, and for other purposes.
PURPOSE AND SUMMARY
H.R. 1736, the ``Generative AI Terrorism Risk Assessment
Act,'' requires the Department of Homeland Security (DHS) to
conduct annual assessments on the threats to the U.S. posed by
terrorist organizations using generative artificial
intelligence (GenAI).
BACKGROUND AND NEED FOR LEGISLATION
GenAI is an advanced technology that uses substantive
amounts of data and machine learning to create content such as
text, images, audio, and video. Unlike traditional artificial
intelligence (AI), which primarily sorts and analyzes data,
GenAI understands the relationships between different data
points, and uses this to generate modified contextually
relevant content.
While GenAI has many positive applications, including
enhancing creativity, efficiency, and personalization, it is
also being weaponized by terrorist organizations like ISIS, Al-
Qaeda, Hezbollah, and Hamas. These groups use GenAI to automate
and amplify propaganda on a massive scale. AI-generated videos,
images, and audio are used to manipulate emotions, create false
realities, and spread false information on social media, making
it increasingly difficult to distinguish from factual content.
This evolving threat landscape underscores the urgent need
for legislation requiring regular threat assessments and
improved coordination between homeland security and law
enforcement to combat the misuse of GenAI by terrorist groups.
To address these challenges, this legislation requires DHS
to conduct annual assessments of GenAI-related threats. It also
directs DHS to enhance the sharing of terrorism-related
information with state, local, tribal, and territorial law
enforcement through Fusion Centers, which will help to close
critical gaps in national security and better protect the
public from increasingly sophisticated, AI-driven threats.
HEARINGS
The Committee held the following hearing in the 119th
Congress that informed H.R. 1736:
On March 4, 2025, the Subcommittee on Counterterrorism and
Intelligence held a hearing entitled ``The Digital Battlefield:
How Terrorists Use the Internet and Online Networks for
Recruitment and Radicalization'' and received testimony from
Daveed Gartenstein-Ross, PhD, Senior Advisor on Asymmetric
Warfare, Foundation for Defense of Democracies; Aaron Zelin,
PhD, Senior Research Fellow, The Washington Institute for Near
East Policy; Mr. Daniel Flesch, Senior Policy Analyst, Middle
East and North Africa, Allison Center for National Security,
the Heritage Foundation, who testified as a private citizen;
and Kurt Braddock, PhD, Assistant Professor, Public
Communication, American University.
COMMITTEE CONSIDERATION
The Committee met on September 3, 2025, a quorum being
present, to consider H.R. 1736 and ordered the measure to be
favorably reported to the House, as amended, by a recorded vote
of 21 yeas to 0 nays.
COMMITTEE VOTES
Clause 3(b) of rule XIII requires the Committee to list the
recorded votes on the motion to report legislation and
amendments thereto.
The vote was as follows:
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
COMMITTEE OVERSIGHT FINDINGS
In compliance with clause 3(c)(1) of rule XIII, the
Committee advises that the findings and recommendations of the
Committee, based on oversight activities under clause 2(b)(1)
of rule X, are incorporated in the descriptive portions of this
report.
CONGRESSIONAL BUDGET OFFICE ESTIMATE, NEW BUDGET AUTHORITY,
ENTITLEMENT AUTHORITY, AND TAX EXPENDITURES
With respect to the requirements of clause 3(c)(2) of rule
XIII and section 308(a) of the Congressional Budget Act of
1974, and with respect to the requirements of clause 3(c)(3) of
rule XIII and section 402 of the Congressional Budget Act of
1974, the Committee adopts as its own the estimate of any new
budget authority, spending authority, credit authority, or an
increase or decrease in revenues or tax expenditures contained
in the cost estimate prepared by the Director of the
Congressional Budget Office.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
H.R. 1736 would require the Department of Homeland Security
(DHS), in consultation with the Director of National
Intelligence, to report to the Congress annually on the threat
of terrorism posed by the use of generative artificial
intelligence (AI). Generative AI uses computer models that
learn from existing data to develop novel output, including
images, video, and audio, based on input provided by a user.
The bill's reporting requirement would end six years after
enactment.
H.R. 1736 also would require DHS to review and disseminate
information gathered by the national network of fusion centers
that is related to threats of terrorism posed by the use of
generative AI. Fusion centers are state-owned entities that
combine intelligence, resources, and expertise across federal,
state, local, and tribal agencies within each state or major
urban area.
Based on the costs of similar activities, CBO estimates
that implementing H.R. 1736 would cost less than $500,000 over
the 2026-2030 period, primarily for the bill's reporting
requirements. Any related spending would be subject to the
availability of appropriated funds. Because DHS already
receives information from fusion centers and disseminates such
information, CBO expects that any costs related to implementing
that requirement would be insignificant.
The CBO staff contact for this estimate is Jeremy Crimm.
The estimate was reviewed by H. Samuel Papenfuss, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
FEDERAL MANDATES STATEMENT
The Committee adopts as its own the estimate of Federal
mandates prepared by the Director of the Congressional Budget
Office pursuant to section 423 of the Unfunded Mandates Reform
Act of 1995.
DUPLICATIVE FEDERAL PROGRAMS
Pursuant to clause 3(c) of rule XIII, the Committee finds
that H.R. 1736 does not contain any provision that establishes
or reauthorizes a program known to be duplicative of another
Federal program.
STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES
Pursuant to clause 3(c)(4) of rule XIII, the objective of
H.R. 1736 is to conduct annual assessments on the threats to
the U.S. posed by terrorist organizations using generative
artificial intelligence (GenAI).
CONGRESSIONAL EARMARKS, LIMITED TAX BENEFITS, AND LIMITED
TARIFF BENEFITS
In compliance with rule XXI, this bill, as reported,
contains no congressional earmarks, limited tax benefits, or
limited tariff benefits as defined in clause 9(d), 9(e), or
9(f) of rule XXI.
ADVISORY COMMITTEE STATEMENT
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act were created by this
legislation.
APPLICABILITY TO THE LEGISLATIVE BRANCH
The Committee finds that H.R. 1736 does not relate to the
terms and conditions of employment or access to public services
or accommodations within the meaning of section 102(b)(3) of
the Congressional Accountability Act.
SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION
Section 1. Short title
This section provides the Act's short title, the
``Generative AI Terrorism Risk Assessment Act.''
Section 2. Sense of Congress regarding the use of Generative Artificial
Intelligence applications for terrorist activity
This section expresses the view of Congress, emphasizing
that the threat posed by foreign terrorists using GenAI remains
uncertain and that DHS must take steps to recognize, assess,
and address this threat.
Section 3. Annual assessments on terrorism threats to the United States
posed by the use of Generative Artificial Intelligence for
terrorism
This section requires DHS, in consultation with the Office
of the Director of National Intelligence (ODNI), to submit a
report on terrorism threats to the United States posed by GenAI
to relevant Committees of jurisdiction within one year of
enactment.
Specifically, Sec. 3(a) stipulates what contents shall be
covered in the report--including analysis of how foreign
terrorist organizations and individuals have used GenAI to
spread violent extremist messaging, radicalize and recruit
individuals, and enhance their ability to develop or deploy
chemical, biological, radiological, or nuclear weapons--and how
the report shall be coordinated amongst the Department. It also
requires DHS to brief relevant Congressional committees of
jurisdiction on the report no later than 30 days after the
completion of the assessment.
Subsection (b) requires DHS to share relevant information
on the contents with state and major urban area fusion centers,
as well as the National Network of Fusion Centers.
Lastly, subsection (c) includes definitions, including a
new definition for ``generative artificial intelligence''.
[all]