Security Council resolution 2178 (2014) [on threats to international peace and security caused by foreign terrorist fighters]
Symbol: S/RES/2178 (2014)
Date: 2014-09-24
Status: adopted
Agenda: S/69 [31] TERRORISM
S/69 [10] INTERNATIONAL SECURITY
Subjects: UN. Security Council Committee Established pursuant to Resolution 1267 (1999) concerning Al-Qaida and the Taliban and Associated Individuals and Entities|UN. Security Council. Analytical Support and Sanctions Monitoring Team Established pursuant to Resolution 1526 (2004)|UN. Security Council Committee Established pursuant to Resolution 1373 (2001) concerning Counter-Terrorism|Al-Qaida Sanctions List|Charter of the United Nations (1945). Chapter VII|FOREIGN TERRORIST FIGHTERS|TERRORISM|COUNTER-TERRORISM|INTERNATIONAL SECURITY|SANCTIONS|SANCTIONS COMPLIANCE|TERRORISM FINANCING|EXPLOSIVES
Votes in favour: 15
Votes against: 0
Abstentions: 0
Voting record:
country: ARGENTINA
vote: yes
country: AUSTRALIA
vote: yes
country: CHAD
vote: yes
country: CHILE
vote: yes
country: CHINA
vote: yes
country: FRANCE
vote: yes
country: JORDAN
vote: yes
country: LITHUANIA
vote: yes
country: LUXEMBOURG
vote: yes
country: NIGERIA
vote: yes
country: REPUBLIC OF KOREA
vote: yes
country: RUSSIAN FEDERATION
vote: yes
country: RWANDA
vote: yes
country: UNITED KINGDOM
vote: yes
country: UNITED STATES
vote: yes

               United Nations                                                                  S/RES/2178 (2014)
               Security Council                                                Distr.: General
                                                                               24 September 2014




               Resolution 2178 (2014)
               Adopted by the Security Council at its 7272nd meeting, on
               24 September 2014

                    The Security Council,
                      Reaffirming that terrorism in all forms and manifestations constitutes one of
               the most serious threats to international peace and security and that any acts of
               terrorism are criminal and unjustifiable regardless of their motivations, whenever
               and by whomsoever committed, and remaining determined to contribute further to
               enhancing the effectiveness of the overall effort to fight this scourge on a global
               level,
                     Noting with concern that the terrorism threat has become more diffuse, with an
               increase, in various regions of the world, of terrorist acts including those motivated
               by intolerance or extremism, and expressing its determination to combat this threat,
                     Bearing in mind the need to address the conditions conducive to the spread of
               terrorism, and affirming Member States’ determination to continue to do all they can
               to resolve conflict and to deny terrorist groups the ability to put down roots and
               establish safe havens to address better the growing threat posed by terrorism,
                     Emphasizing that terrorism cannot and should not be associated with any
               religion, nationality or civilization,
                     Recognizing that international cooperation and any measures taken by Member
               States to prevent and combat terrorism must comply fully with the Charter of the
               United Nations,
                    Reaffirming its respect for the sovereignty, territorial integrity and political
               independence of all States in accordance with the Charter,
                     Reaffirming that Member States must ensure that any measures taken to
               counter terrorism comply with all their obligations under international law, in
               particular international human rights law, international refugee law, and
               international humanitarian law, underscoring that respect for human rights,
               fundamental freedoms and the rule of law are complementary and mutually
               reinforcing with effective counter-terrorism measures, and are an essential part of a
               successful counter-terrorism effort and notes the importance of respect for the rule
               of law so as to effectively prevent and combat terrorism, and noting that failure to
               comply with these and other international obligations, including und er the Charter


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               of the United Nations, is one of the factors contributing to increased radicalization
               and fosters a sense of impunity,
                     Expressing grave concern over the acute and growing threat posed by foreign
               terrorist fighters, namely individuals who travel to a State other than their States of
               residence or nationality for the purpose of the perpetration, planning, or preparation
               of, or participation in, terrorist acts or the providing or receiving of terrorist
               training, including in connection with armed conflict, and resolving to address this
               threat,
                     Expressing grave concern about those who attempt to travel to become foreign
               terrorist fighters,
                     Concerned that foreign terrorist fighters increase the intensity, duration and
               intractability of conflicts, and also may pose a serious threat to their States of origin,
               the States they transit and the States to which they travel, as well as States
               neighbouring zones of armed conflict in which foreign terrorist fighters are active
               and that are affected by serious security burdens, and noting that the threat of
               foreign terrorist fighters may affect all regions and Member States, even those far
               from conflict zones, and expressing grave concern that foreign terrorist fighters are
               using their extremist ideology to promote terrorism,
                     Expressing concern that international networks have been established by
               terrorists and terrorist entities among States of origin, transit and destination
               through which foreign terrorist fighters and the resources to support them have been
               channelled back and forth,
                     Expressing particular concern that foreign terrorist fighters are being recruited
               by and are joining entities such as the Islamic State in Iraq and the Levant (ISIL),
               the Al-Nusrah Front (ANF) and other cells, affiliates, splinter groups or derivatives
               of Al-Qaida, as designated by the Committee established pursuant to resolutions
               1267 (1999) and 1989 (2011), recognizing that the foreign terrorist fighter threat
               includes, among others, individuals supporting acts or activities of Al -Qaida and its
               cells, affiliates, splinter groups, and derivative entities, including by recruiting for
               or otherwise supporting acts or activities of such entities, and stressing the urgent
               need to address this particular threat,
                     Recognizing that addressing the threat posed by foreign terrorist fighters
               requires comprehensively addressing underlying factors, including by preventing
               radicalization to terrorism, stemming recruitment, inhibiting foreign terrorist fighter
               travel, disrupting financial support to foreign terrorist fighters, countering violent
               extremism, which can be conducive to terrorism, countering incitement to terrorist
               acts motivated by extremism or intolerance, promoting political and religious
               tolerance, economic development and social cohesion and inclusiveness, ending and
               resolving armed conflicts, and facilitating reintegration and rehabilitation,
                     Recognizing also that terrorism will not be defeated by military force, law
               enforcement measures, and intelligence operations alone, and underlining the need
               to address the conditions conducive to the spread of terrorism, as outlined in Pillar I
               of the United Nations Global Counter-Terrorism Strategy (A/RES/60/288),
                    Expressing concern over the increased use by terrorists and their supporters of
               communications technology for the purpose of radicalizing to terrorism, recruiting
               and inciting others to commit terrorist acts, including through the internet, and



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           financing and facilitating the travel and subsequent activities of foreign terrorist
           fighters, and underlining the need for Member States to act cooperatively to prevent
           terrorists from exploiting technology, communications and resources to incite
           support for terrorist acts, while respecting human rights and fundamental freedoms
           and in compliance with other obligations under international law,
                 Noting with appreciation the activities undertaken in the area of capacity
           building by United Nations entities, in particular entities of the Counter-Terrorism
           Implementation Task Force (CTITF), including the United Nations Office of Drugs
           and Crime (UNODC) and the United Nations Centre for Count er-Terrorism
           (UNCCT), and also the efforts of the Counter Terrorism Committee Executive
           Directorate (CTED) to facilitate technical assistance, specifically by promoting
           engagement between providers of capacity-building assistance and recipients, in
           coordination with other relevant international, regional and subregional
           organizations, to assist Member States, upon their request, in implementation of the
           United Nations Global Counter-Terrorism Strategy,
                 Noting recent developments and initiatives at the international, regional and
           subregional levels to prevent and suppress international terrorism, and noting the
           work of the Global Counterterrorism Forum (GCTF), in particular its recent
           adoption of a comprehensive set of good practices to address the foreign terrorist
           fighter phenomenon, and its publication of several other framework documents and
           good practices, including in the areas of countering violent extremism, criminal
           justice, prisons, kidnapping for ransom, providing support to victims of terrorism,
           and community-oriented policing, to assist interested States with the practical
           implementation of the United Nations counter-terrorism legal and policy framework
           and to complement the work of the relevant United Nations counter-terrorism
           entities in these areas,
                 Noting with appreciation the efforts of INTERPOL to address the threat posed
           by foreign terrorist fighters, including through global law enforcement information
           sharing enabled by the use of its secure communications network, databases, and
           system of advisory notices, procedures to track stolen, forged identity papers and
           travel documents, and INTERPOL’s counter-terrorism fora and foreign terrorist
           fighter programme,
                 Having regard to and highlighting the situation of individuals of more than
           one nationality who travel to their states of nationality for the purpose of the
           perpetration, planning, preparation of, or participation in, terrorist acts or the
           providing or receiving of terrorist training, and urging States to take action, as
           appropriate, in compliance with their obligations under their domestic law and
           international law, including international human rights law,
                 Calling upon States to ensure, in conformity with international law, in
           particular international human rights law and internatio nal refugee law, that refugee
           status is not abused by the perpetrators, organizers or facilitators of terrorist acts,
           including by foreign terrorist fighters,
                Reaffirming its call upon all States to become party to the international
           counter-terrorism conventions and protocols as soon as possible, whether or not they
           are a party to regional conventions on the matter, and to fully implement their
           obligations under those to which they are a party,




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                     Noting the continued threat to international peace and security posed by
               terrorism, and affirming the need to combat by all means, in accordance with the
               Charter of the United Nations, threats to international peace and security caused by
               terrorist acts, including those perpetrated by foreign terrorist fighters,
                    Acting under Chapter VII of the Charter of the United Nations,
                     1.    Condemns the violent extremism, which can be conducive to terrorism,
               sectarian violence, and the commission of terrorist acts by foreign terrorist fighters,
               and demands that all foreign terrorist fighters disarm and cease all terrorist acts and
               participation in armed conflict;
                     2.    Reaffirms that all States shall prevent the movement of terrorists or
               terrorist groups by effective border controls and controls on issuance of identity
               papers and travel documents, and through measures for preventing counterfeiting,
               forgery or fraudulent use of identity papers and travel documents, underscores, in
               this regard, the importance of addressing, in accordance with their relevant
               international obligations, the threat posed by foreign terrorist fighters, and
               encourages Member States to employ evidence-based traveller risk assessment and
               screening procedures including collection and analysis of travel data, without
               resorting to profiling based on stereotypes founded on grounds of discrimination
               prohibited by international law;
                     3.    Urges Member States, in accordance with domestic and international law,
               to intensify and accelerate the exchange of operational information regarding
               actions or movements of terrorists or terrorist networks, including foreign terrorist
               fighters, especially with their States of residence or nationality, through bilateral or
               multilateral mechanisms, in particular the United Nations;
                     4.    Calls upon all Member States, in accordance with their obligations under
               international law, to cooperate in efforts to address the threat posed by foreign
               terrorist fighters, including by preventing the radicalization to terrorism and
               recruitment of foreign terrorist fighters, including children, preve nting foreign
               terrorist fighters from crossing their borders, disrupting and preventing financial
               support to foreign terrorist fighters, and developing and implementing prosecution,
               rehabilitation and reintegration strategies for returning foreign terroris t fighters;
                     5.   Decides that Member States shall, consistent with international human
               rights law, international refugee law, and international humanitarian law, prevent
               and suppress the recruiting, organizing, transporting or equipping of individuals
               who travel to a State other than their States of residence or nationality for the
               purpose of the perpetration, planning, or preparation of, or participation in, terrorist
               acts or the providing or receiving of terrorist training, and the financing of their
               travel and of their activities;
                     6.   Recalls its decision, in resolution 1373 (2001), that all Member States
               shall ensure that any person who participates in the financing, planning, preparation
               or perpetration of terrorist acts or in supporting terrorist acts is brought to justice,
               and decides that all States shall ensure that their domestic laws and regulations
               establish serious criminal offenses sufficient to provide the ability to prosecute and
               to penalize in a manner duly reflecting the seriousness of the offense:
                     (a) their nationals who travel or attempt to travel to a State other than their
               States of residence or nationality, and other individuals who travel or attempt to



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           travel from their territories to a State other than their States of residence or
           nationality, for the purpose of the perpetration, planning, or preparation of, or
           participation in, terrorist acts, or the providing or receiving of terrorist training;
                 (b) the wilful provision or collection, by any means, directly or indirectly, of
           funds by their nationals or in their territories with the intention that the funds should
           be used, or in the knowledge that they are to be used, in order to finance the travel
           of individuals who travel to a State other than their States of residence or nationality
           for the purpose of the perpetration, planning, or preparation of, or participation in,
           terrorist acts or the providing or receiving of terrorist training; and,
                 (c) the wilful organization, or other facilitation, including acts of
           recruitment, by their nationals or in their territories, of the travel of individuals who
           travel to a State other than their States of residence or nationality for the purpose of
           the perpetration, planning, or preparation of, or participation in, terrorist acts or the
           providing or receiving of terrorist training;
                 7.   Expresses its strong determination to consider listing pursuant to
           resolution 2161 (2014) individuals, groups, undertakings and entities associated
           with Al-Qaida who are financing, arming, planning, or recruiting for them, or
           otherwise supporting their acts or activities, including through information and
           communications technologies, such as the internet, social med ia, or any other
           means;
                 8.    Decides that, without prejudice to entry or transit necessary in the
           furtherance of a judicial process, including in furtherance of such a process related
           to arrest or detention of a foreign terrorist fighter, Member States shal l prevent the
           entry into or transit through their territories of any individual about whom that State
           has credible information that provides reasonable grounds to believe that he or she
           is seeking entry into or transit through their territory for the purpo se of participating
           in the acts described in paragraph 6, including any acts or activities indicating that
           an individual, group, undertaking or entity is associated with Al -Qaida, as set out in
           paragraph 2 of resolution 2161 (2014), provided that nothing in this paragraph shall
           oblige any State to deny entry or require the departure from its territories of its own
           nationals or permanent residents;
                  9.   Calls upon Member States to require that airlines operating in their
           territories provide advance passenger information to the appropriate national
           authorities in order to detect the departure from their territories, or attempted entry
           into or transit through their territories, by means of civil aircraft, of in dividuals
           designated by the Committee established pursuant to resolutions 1267 (1999) and
           1989 (2011) (“the Committee”), and further calls upon Member States to report any
           such departure from their territories, or such attempted entry into or transit through
           their territories, of such individuals to the Committee, as well as sharing this
           information with the State of residence or nationality, as appropria te and in
           accordance with domestic law and international obligations;
                 10. Stresses the urgent need to implement fully and immediately this
           resolution with respect to foreign terrorist fighters, underscores the particular and
           urgent need to implement this resolution with respect to those foreign terrorist
           fighters who are associated with ISIL, ANF and other cells, affiliates, splinter
           groups or derivatives of Al-Qaida, as designated by the Committee, and expresses its




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               readiness to consider designating, under resolution 2161 (2014), individuals
               associated with Al-Qaida who commit the acts specified in paragraph 6 above;

               International Cooperation
                     11. Calls upon Member States to improve international, regional, and
               subregional cooperation, if appropriate through bilateral agreements, to prevent the
               travel of foreign terrorist fighters from or through their territories, including through
               increased sharing of information for the purpose of identifying fore ign terrorist
               fighters, the sharing and adoption of best practices, and improved understanding of
               the patterns of travel by foreign terrorist fighters, and for Member States to act
               cooperatively when taking national measures to prevent terrorists from expl oiting
               technology, communications and resources to incite support for terrorist acts, while
               respecting human rights and fundamental freedoms and in compliance with other
               obligations under international law;
                     12. Recalls its decision in resolution 1373 (2001) that Member States shall
               afford one another the greatest measure of assistance in connection with criminal
               investigations or proceedings relating to the financing or support of terrorist acts,
               including assistance in obtaining evidence in their possession necessary for the
               proceedings, and underlines the importance of fulfilling this obligation with respect
               to such investigations or proceedings involving foreign terrorist fighters;
                     13. Encourages Interpol to intensify its efforts with respect to the foreign
               terrorist fighter threat and to recommend or put in place additional resources to
               support and encourage national, regional and international measures to monitor and
               prevent the transit of foreign terrorist fighters, such as expanding the use of
               INTERPOL Special Notices to include foreign terrorist fighters;
                     14. Calls upon States to help build the capacity of States to address the threat
               posed by foreign terrorist fighters, including to prevent and i nterdict foreign
               terrorist fighter travel across land and maritime borders, in particular the States
               neighbouring zones of armed conflict where there are foreign terrorist fighters, and
               welcomes and encourages bilateral assistance by Member States to help build such
               national capacity;

               Countering Violent Extremism in Order to Prevent Terrorism
                     15. Underscores that countering violent extremism, which can be conducive
               to terrorism, including preventing radicalization, recruitment, and mobilization of
               individuals into terrorist groups and becoming foreign terrorist fighters is an
               essential element of addressing the threat to international peace and security posed
               by foreign terrorist fighters, and calls upon Member States to enhance efforts to
               counter this kind of violent extremism;
                     16. Encourages Member States to engage relevant local communities and
               non-governmental actors in developing strategies to counter the violent extremist
               narrative that can incite terrorist acts, address the conditions conducive t o the spread
               of violent extremism, which can be conducive to terrorism, including by
               empowering youth, families, women, religious, cultural and education leaders, and
               all other concerned groups of civil society and adopt tailored approaches to
               countering recruitment to this kind of violent extremism and promoting social
               inclusion and cohesion;



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                 17. Recalls its decision in paragraph 14 of resolution 2161 (2014) with
           respect to improvised explosive devices (IEDs) and individuals, groups,
           undertakings and entities associated with Al-Qaida, and urges Member States, in
           this context, to act cooperatively when taking national measures to prevent terrorists
           from exploiting technology, communications and resources, including audio and
           video, to incite support for terrorist acts, while respecting human rights and
           fundamental freedoms and in compliance with other obligations under international
           law;
                18. Calls upon Member States to cooperate and consistently support each
           other’s efforts to counter violent extremism, which can be conducive to terrorism,
           including through capacity building, coordination of plans and efforts, and sharing
           lessons learned;
                 19. Emphasizes in this regard the importance of Member States’ effo rts to
           develop non-violent alternative avenues for conflict prevention and resolution by
           affected individuals and local communities to decrease the risk of radicalization to
           terrorism, and of efforts to promote peaceful alternatives to violent narratives
           espoused by foreign terrorist fighters, and underscores the role education can play
           in countering terrorist narratives;

           United Nations Engagement on the Foreign Terrorist Fighter Threat
                 20. Notes that foreign terrorist fighters and those who finance or otherwise
           facilitate their travel and subsequent activities may be eligible for inclusion on the
           Al-Qaida Sanctions List maintained by the Committee pursuant to resolutions 1267
           (1999) and 1989 (2011) where they participate in the financing, planning,
           facilitating, preparing, or perpetrating of acts or activities by, in conjunction with,
           under the name of, on behalf of, or in support of, Al -Qaida, supplying, selling or
           transferring arms and related materiel to, or recruiting for, or otherwise supporting
           acts or activities of Al-Qaida or any cell, affiliate, splinter group or derivative
           thereof, and calls upon States to propose such foreign terrorist fighters and those
           who facilitate or finance their travel and subsequent activities for possible
           designation;
                 21. Directs the Committee established pursuant to resolution 1267 (1999)
           and 1989 (2011) and the Analytical Support and Sanctions Monitoring Team, in
           close cooperation with all relevant United Nations counter-terrorism bodies, in
           particular CTED, to devote special focus to the threat posed by foreign terrorist
           fighters recruited by or joining ISIL, ANF and all groups, undertakings and entities
           associated with Al-Qaida;
                 22. Encourages the Analytical Support and Sanctions Monitoring Team to
           coordinate its efforts to monitor and respond to the threat po sed by foreign terrorist
           fighters with other United Nations counter-terrorism bodies, in particular the
           CTITF;
                23. Requests the Analytical Support and Sanctions Monitoring Team, in close
           cooperation with other United Nations counter-terrorism bodies, to report to the
           Committee established pursuant to resolutions 1267 (1999) and 1989 (2011) within
           180 days, and provide a preliminary oral update to the Com mittee within 60 days,
           on the threat posed by foreign terrorist fighters recruited by or joining ISIL, ANF
           and all groups, undertakings and entities associated with Al -Qaida, including:



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                     (a) a comprehensive assessment of the threat posed by these foreign t errorist
               fighters, including their facilitators, the most affected regions and trends in
               radicalization to terrorism, facilitation, recruitment, demographics, and financing;
               and
                     (b) recommendations for actions that can be taken to enhance the response to
               the threat posed by these foreign terrorist fighters;
                     24. Requests the Counter-Terrorism Committee, within its existing mandate
               and with the support of CTED, to identify principal gaps in Member States’
               capacities to implement Security Council resolutions 1373 (2001) and 1624 (2005)
               that may hinder States’ abilities to stem the flow of foreign terrorist fighters, as well
               as to identify good practices to stem the flow of foreign terrorist fighters in the
               implementation of resolutions 1373 (2001) and 1624 (2005), and to facilitate
               technical assistance, specifically by promoting engagement between providers of
               capacity-building assistance and recipients, especially those in the most affected
               regions, including through the development, upon their request, of comprehensive
               counter-terrorism strategies that encompass countering violent radicalization and the
               flow of foreign terrorist fighters, recalling the roles of other relevant actors, for
               example the Global Counterterrorism Forum;
                    25. Underlines that the increasing threat posed by foreign terrorist fighte rs is
               part of the emerging issues, trends and developments related to resolutions 1373
               (2001) and 1624 (2005), that, in paragraph 5 of resolution 2129 (2013), the Security
               Council directed CTED to identify, and therefore merits close attention by the
               Counter-Terrorism Committee, consistent with its mandate;
                   26. Requests the Committee established pursuant to resolutions 1267 (1999)
               and 1989 (2011) and the Counter-Terrorism Committee to update the Security
               Council on their respective efforts pursuant to this resolution;
                    27.   Decides to remain seized of the matter.




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