Some paedophiles with images of child abuse will escape prosecution, the head of the National Crime Agency says.
Keith Bristow said the NCA would have to focus on pursuing those who posed most risk but that others would face a "range of interventions".
Some 660 arrests were made during a recent operation targeting people who had accessed child abuse images online.
However, the BBC understands that as many as 20,000-30,000 individuals were identified during that investigation.
End Quote Donald Findlater Lucy Faith FoundationWe have been pretending as every other nation in the world is currently pretending that they're on top of this problem online - they are not.""
The Child Exploitation and Online Protection Centre (CEOP) - part of the NCA - has estimated that 50,000 people in the UK are involved in downloading and sharing images of child abuse.
NCA director general Mr Bristow said it was "not realistic" to expect all of them to face prosecution.
"Our responsibility is to focus on the greatest risk and tackle those people," he said.
'Horrible criminality'The NCA said in July that the 660 arrests made as part of Operation Notarise included teachers, medical staff, former police officers, a social services worker and a scout leader.
Some of the suspected paedophiles had terabytes - equivalent to 1,000GB - worth of data on their hard drives or storage devices.
Mr Bristow said every image would be assessed, describing it was "high volume" work that had to be done at pace.
"If there are 50,000 people involved in this particularly horrible type of criminality, I don't believe all 50,000 will end up in the criminal justice system," he said at a briefing for journalists.
"It's uncomfortable but we're going work through it in a logical way, target the most risky first."
He said there would be a "range of interventions" which for some of the offenders could fall short of them "standing in a court".
Mr Bristow drew a distinction between "contact abusers" who may have been involved in physical abuse, and those who shared images.
Society would have to have "deeply uncomfortable conversations" about the scale of child abuse and how to respond to it, Mr Bristow added.
Donald Findlater, from children's charity the Lucy Faith Foundation, said the NCA's "candour" was "desperately important".
But he said police needed to "make a judgement" and "deploy their resources to go for those who are most directly dangerous to children and are most actively sharing online".
"There is a whole raft of additional people behaving badly online who need to get some kind of a response.
"I think it's important that their behaviour is brought out into the open," he told BBC News.
"We have been pretending as every other nation in the world is currently pretending that they're on top of this problem online - they are not."
Last week Mr Bristow apologised after CEOP sat on information it had about 2,000 British paedophiles for more than a year.
Information on the men was sent to UK authorities by Toronto Police in July 2012, as part of an international investigation, Operation Spade, into suspected paedophiles.
But it was not passed on to police forces until more than 12 months later in November 2013.
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