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Congressionol Research Service
Informing the Iegisl9tive debate since 1914


Updated December  2, 2024


The Dark Web: An Overview

Many  observers of the World Wide Web (web) have
described it as having layers. One layer, the surface web,
contains indexed content easily accessible with a traditional
search engine such as Google. Another layer, the deep web,
contains unindexed content that cannot be accessed with a
simple Google search. Within the deep web is a segment
known  as the dark web-a layer where content is
intentionally concealed. The dark web may be used for
legitimate purposes as well as to conceal criminal or
otherwise malicious activities. It is the exploitation of the
dark web for illegal practices that has garnered particular
interest from law enforcement officials and policymakers.

Layers of the Web
Many  consider the internet and web to be synonymous;
they are not. The web is just one portion of the internet, and
a medium  through which information may be accessed.
(The internet is also used for email, file transfers, and direct
messaging, among  other things.)

*  Within the web, one portion is known as the surface
   web, comprised of content that has been indexed and is
   accessible through traditional search engines such as
   Google.

*  Another portion of the web is the deep web, which
   contains content that has not been indexed and thus is
   not accessible through traditional search engines. This
   includes content on private intranets (internal networks
   such as those at corporations, government agencies, or
   universities), and commercial databases like Westlaw.
   Accessing this content often requires authentication (i.e.,
   verification of the user's identity) and permission to
   access the content.

*  Within the deep web is the dark web, the segment of the
   deep web that has been intentionally hidden. It refers to
   internet sites that users generally cannot access without
   using special software. While the content of these sites
   may  be accessed using this software, publishers of these
   sites are often concealed. Users access the dark web
   with the expectation of being able to share information
   and/or files with little risk of detection.

Accessing and Nayigating the Dark Web
The dark web can be reached through decentralized,
anonymized  nodes on various networks including Tor
(short for The Onion Router) or 12P (Invisible Internet
Project). Tor, which was initially released as The Onion
Routing project in 2002, was originally created by the U.S.
Naval Research Laboratory as a tool for anonymously
communicating  online. Some privacy and security
advocates have noted that using Tor may not be completely
anonymous  (e.g., some internet service providers can see


that an individual is using Tor-but not the content) and
have suggested that using Tor in conjunction with a virtual
private network (VPN) can provide additional privacy
because a VPN  may conceal internet activity, including the
use of Tor.

How   Tor Works
Tor works by routing users' web traffic through other users'
computers, thus connecting to internet sites indirectly rather
than directly and preventing the traffic from being traced to
the original user. To do this, Tor creates layers (like layers
of an onion) and routes traffic through those layers to
conceal users' identities. To get from layer to layer, Tor
establishes relays on computers around the world through
which information passes. Information is encrypted
between relays and is routed through three relays before
reaching its destination. The final relay is called the exit
relay, and the IP address of this relay is viewed as the
source of the Tor traffic. When using Tor software, users'
IP addresses remain hidden; as such, it appears that the
connection to any given website is coming from the IP
address of a Tor exit relay.

While data on the magnitude of the deep web and dark web
and how they relate to the surface web are unclear, data on
Tor users do exist. According to metrics from the Tor
Project, the mean number of daily Tor users in the United
States across the first 10 months of 2024 was 430,054-or
13.7%  of total mean daily Tor users worldwide. The United
States had the second largest number of mean daily Tor
users during this time period, behind Germany (37.7%) and
ahead of Finland (3.7%), the Netherlands (3.5%), and India
(2.7%).

Navigating  the Dark  Web
Traditional search engines often use web crawlers to access
websites on the surface web. Web crawlers search the web
and gather websites that the search engines can then catalog
and index. Content on the deep web and dark web,
however, may  not be caught by web crawlers (and
subsequently indexed by traditional search engines) for a
number  of reasons, including that it may be unstructured,
unlinked, or temporary content. As such, there are different
mechanisms  for navigating the deep web and the dark web.
Users often navigate dark websites through directories such
as the Hidden Wiki, which organizes sites by category,
similar to Wikipedia. Individuals can also search the dark
web with search engines. For instance, Ahmia searches
across hidden services on the Tor network, and Kilos
searches markets, known as darknet markets, notorious for
serving the cybercriminal underground.

Tor is often slower than other web browsers, in part
because Tor traffic is routed through multiple relays and

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