Kroger, Target, Walgreens push for law on organized retail crime

In many cases, the retail shopping experience has become unpleasant.

When you walk into a Target or a Walgreens and find the items you need in a locked cabinet that requires waiting for an employee to get what you need, it's easier to just jump onto your phone and order the item from Amazon.

Retailers, however, aren't locking items up because they want to inconvenience customers. They're doing so to combat both regular shoplifting and organized retail crime (ORC).

ORC has been a growing issue, and the National Retail Federation (NRF) shared a policy document that explains the problem.

• Organized retail crime is the large-scale theft of retail merchandise with the intent to sell the items for financial gain.
• ORC typically involves a criminal enterprise directing or employing individuals who steal large quantities of merchandise from across the retail enterprise and a structured hierarchy that collects and redistributes the stolen goods.
• Stolen items are then sold through various venues (online, flea markets, pawn shops, back to retail), with the proceeds for profit or used to support other nefarious crimes.

"In 2025, more than half of the retailers surveyed reported increases in phone scams (70%), digital and ecommerce frauds (55%), shoplifting and merchandise theft (52%), and cargo or supply chain thefts (50%) being conducted by ORC groups," the NRF shared.

"These groups now exploit both physical and digital channels, operating seamlessly across state lines and even borders. In fact, 66% of retailers reported transnational ORC involvement in thefts against their companies since 2024, underscoring the need for coordinated federal action."

Now, numerous retailers and retail trade associations have signed a letter urging Congress to pass a bill proposed by Ohio Republican Congressman David Joyce: the Combating Organized Retail Crime Act of 2025 (CORCA).

A look at what CORCA would do

Combating Organized Retail Crime Act of 2025 (CORCA):

• Purpose: Strengthen federal tools to fight large-scale, organized retail theft.
• Center of Coordination: Creates an Organized Retail & Supply Chain Crime Coordination Center within the U.S. Department of Homeland Security (HSI) to coordinate federal, state, local, and private-sector efforts.
• Expanded Definitions: Defines “organized retail and supply chain crime” to include crimes like interstate transport of stolen goods (under certain U.S. Code sections), conspiracy, and related offenses.
  Source: Congress.gov
• Criminal Forfeiture: Allows criminal forfeiture (i.e., seizure of assets) following convictions under key statutes (e.g., related to transportation or sale of stolen goods).
• Money Laundering Enhancements:
  Expands money laundering statutes by treating gift cards as “monetary instruments.” Adds organized retail crime-related crimes as predicate offenses for money laundering.
• Aggregation of Thefts: Permits aggregation of thefts (e.g., multiple thefts over 12 months) once they exceed a $5,000 threshold, making prosecution easier for organized groups.
• Interstate & International Reach: Enables prosecution of crime groups that use interstate or foreign commerce (including the internet) as part of their operations.
  Source: Senate Judiciary Committee
• Law Enforcement Collaboration:
  Coordinates with state and local law enforcement, as well as industry (retailers, transport companies). Shares threat intelligence, trends, and investigatory information between public and private partners.
• Support & Backing: The bipartisan bill has support from the National Retail Federation, Railroads (Association of American Railroads), UPS, DHL, and other supply-chain stakeholders.
  Source: U.S. Senator Bill Cassidy, National Police Association
• Findings & Motivation:
  Congress finds that thefts, fraud, and violence tied to organized retail crime have surged — citing retailer data on increasing larceny and aggression. Organized theft rings are seen as cross-jurisdictional, sometimes transnational, and potentially linked to broader criminal enterprises (e.g., trafficking).
• Deterrence Goal: By increasing penalties, enabling forfeiture, and strengthening investigative capacity, the bill aims to make organized retail crime less profitable and more risky for criminal groups.
  Source: Senate Judiciary Committee

Retail leaders call for CORCA to pass

In a letter to Majority Leader John Thune, Minority Leader Chuck Schumer, Speaker of the House Mike Johnson, and House Minority Leader Hakeem Jeffries, a large consortium of retailer leaders called on Congress to pass the bill.

"The impact of ORC is felt at every level of the supply chain that spans across the country throughout numerous jurisdictions. Warehouse workers, truck drivers, rail workers, retail employees, and loss prevention professionals are increasingly exposed to dangerous and sometimes violent encounters," the letter explained.

The retailers and trade associations, which includes the National Retail Federation
and National Small Business Association (NSBA), made it clear what they want from Congress.

"These crimes also strain local law enforcement resources and erode the sense of safety in neighborhoods where these criminal networks operate and profit. Given the scope and sophistication of these criminal operations, a federal response is needed," they wrote.

Related: Leading grocery chain closes stores, makes another big cut

The signees did not include Walmart — which did not respond to a request from RetailDive as to why it had not signed the letter — and called for the bill's passage before the holiday season.

"As we approach peak retail and shipping season, the need for stronger tools to combat ORC remains urgent. Criminal networks continue to target certain segments in the supply chain and enforcement gaps across multiple jurisdictions. CORCA offers a timely solution by enhancing coordination, supporting prosecutors and law enforcement. This legislation will also protect workers, businesses, and consumers during a critical period for the economy," they added.

U.S. organized retail crime (ORC) numbers and facts

• According to a 2023 NRF survey, 67% of retailers reported seeing more violence and aggression from ORC perpetrators compared to the prior year.
• In the same survey, due to retail crime:
• 28% of retailers said they had to close a store location.
• 45% reduced operating hours.
• 30% altered in-store product selection.
  Source: National Retail Federation
• Cargo theft (often tied to ORC networks) is estimated to cost U.S. businesses $15 to $30 billion annually.
  Source: National Retail Federation
• On ORC’s operational burden: Retailers are spending more on security; in one survey, 48% increased spending on loss-prevention tools (surveillance, lockboxes, reporting systems, etc.).
  Source: ASIS International
• In 2024, retailers reported an 18% increase in shoplifting incidents (vs. 2023) and a 17% rise in threats or acts of violence during theft.
• The same 2025 NRF/LPRC report found that 50% of retailers saw ORC groups increasing their activity in cargo/supply‑chain theft over the prior 12 months.
  Source: National Retail Federation