UNICRI INITIATIVES: REHABILITATION AND REINTEGRATION
OF VIOLENT EXTREMIST OFFENDERS AND COMMUNITY-BASEDPROJECTS
Chiara Bologna＊

I. INTRODUCTION
This paper will illustrate, based on the Settings and Community-Based Initiatives, the Rehabilitation andReintegration of Violent Extremist Offenders platforms put forward by the United Nations in accordancewith the United Nations Counter-Terrorism Strategy.
The notion of counter-terrorism has been materialised in a whole series of organisational mechanisms,
processes and entities within the United Nations system that aim to tackle the issues of violent extremism
and terrorism from all different angles so as to provide a more comprehensive approach to this multifacetedthreat. Taking such a comprehensive approach and making provisions for the coordination of all these efforts
is considered part of an effective Counter-Terrorism Strategy.1
Within the Counter-Terrorism Strategy, there are the two branches of countering violent extremism(CVE) and the preventing of violent extremism (PVE). Both are essential to reducing the risk posed by those
who are currently engaged in violent extremism and those who are vulnerable and on the way to becoming
engaged. In the case of the latter, it is challenging to identify which individuals would be vulnerable tobecoming involved in violent extremism. As for the former, the violent extremist offender (VEO) is a highpriority due to their history of engagement and the possibility that they would re-engage after entering andexiting the criminal justice system.
Many VEOs held in custody will one day be released from prison2 and dealing with this imminent reality
requires its own strategic response. Their successful rehabilitation can make the difference between acontinued terrorist threat and a reformed person returning to society ‒ and in some cases, even an individual
ready to aid in the rehabilitation of future persons at risk of radicalization, by providing counter narratives.
Rehabilitation and reintegration are therefore the combined stages to help an individual with their transition
away from violent extremism.
The process of rehabilitation and reintegration is a personal one since every VEO has their own beliefs
and experiences and will respond to rehabilitative efforts in different ways and at different times in theprocess. There is nevertheless space for a common conception of the scope and shape of VEO rehabilitation
and reintegration efforts that gathers them into one joint process.

II. CYCLE OF PREVENTING AND COUNTERING VIOLENT EXTREMISM
This Cycle of Prevention and Countering Violent Extremism (P/CVE) refers to a basis for acomprehensive programmatic approach to PVE intervention. The work of the United Nations Interregional
Crime and Justice Research Institute (UNICRI) explores all of the stages that comprise the Cycle (see Figure1) for ways to act on these opportunities and to enhance a comprehensive approach.3 Inspired by the Global
Associate Programme Officer, United Nations Interregional Crime and Justice Research Institute (UNICRI). The content of
this paper does not necessarily reflect the views or policies of UNICRI or contributory organizations, nor does it imply any
endorsement. @UNICRI, August 2017. This publication may be reproduced in whole or in part and in any form for educationalor non-profit purposes without special permission from the copyright holder, provided acknowledgement of the source is made.
UNICRI would appreciate receiving a copy of any publication that uses this paper as a source.
1
United Nations General Assembly Resolution (A/RES/60/288) (2006) The United Nations Global Counter-Terrorism Strategy.
2
Council of Europe Handbook for Prison and Probation Services regarding Radicalisation and Violent Extremism (2016)..
European Committee on Crime Problems (CDPC) and Council for Penological Co-operation (PC-CP) 2 rev 4＊

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RESOURCE MATERIAL SERIES No. 104

Figure 1. The cycle of preventing violent extremism5
Counter Terrorism Forum (GCTF)4 life cycle and based on UNICRIʼs work, a cycle model has been developedwith the aim to create a comprehensive model towards preventing violent extremism.
When it comes to prevention of violent extremism with a focus on the individual VEO, there are multiple
opportunities to have interventions. These start at the earliest stages with PVE and continue as the offender
enters and eventually exits the criminal justice system. Once they have re-entered society, whether it is after
serving a custodial sentence or not, there is again a need for PVE to reduce the risk of recidivism. In this way,
counter-terrorism with regard to the individual is a cycle which can be broken down into a number of stages(see Figure 1), each of which presents its own opportunities for a person to break away from violent
extremism. For some, this may occur at the earliest stages but for some individuals the cycle might continue.
One of the stages of the cycle shown above is the community. The community is also one of the influentialsocial layers surrounding each individual offender, even at their time of detention. In order for the individual
to go through and sustain behavioural change, support from the community is needed6. Therefore, when it
comes to offender rehabilitation and reintegration, communities have a crucial role to play as they can serveas the foundation to rehabilitate and reintegrate offenders in numerous ways, namely: before prison if bail isgranted, after prison, or instead of custody altogether. For this reason, UNICRI has been working with thecountries in the Maghreb and Sahel regions since 2009. In 2015 the Institute embarked on a pilot project
launched in cooperation with the European Union.
The main objective of the project is to launch, implement and evaluate innovative projects aimed atpreventing and countering radicalization, terrorist recruitment and violent extremism in the Sahel-Maghreb
region and disseminate lessons learned and best practices. The Pilot Project has a particular focus on Algeria,
Klima, N. (forthcoming). ʻPathways towards an integrated and integral life-cycle approach on P/CVE in capacity buildingʼ.
UNICRI, Turin.
4
For more information on the GCTF, see: <https://www.thegctf.org/>.
5
Figure based on earlier work of Noel Klima, United Nations Interregional Crime and Justice Research Institute ‒ UNICRI.
6
See Arispe, I. (2017). ʻProgramming community-led interventions in CVEʼ. Lecture at Specialized Training on International
Criminal Law and Global Threats to Peace and Security ‒ Counter-Terrorism UNICRI, Turin.
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Morocco, Tunisia, Libya, Mauritania, Mali, Niger, Chad and Burkina Faso. Smaller, innovative projects werelaunched under this more large-scale initiative. These projects targeted groups within civil society,particularly youth, women, religious groups, the media, and community leaders.
Engagement of civil society and non-state actors is the main focus, as well as cross-border cooperation.
These elements are essential in the community-based initiatives to ensure a comprehensive counterterrorism strategy.

III. COMMUNITY-BASED INITIATIVES
Recognising the fact that VEOs come from, live in, and return to communities makes community-based
initiatives indispensable for many P/CVE efforts. No community can consider itself immune since VEOs havebeen shown to come from all different backgrounds. The importance of communities is highlighted in the UN
Security Councilʼs Foreign Fighters Resolution 2178 (2014), which recommends all 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 to the spread of violent
extremism, which can be conducive to terrorism”.7
Many PVE and counter-radicalisation efforts are geared towards building community resilience to violent
extremism. The foundation of such efforts provides for a deeper understanding of the radicalisation
phenomenon, the associated risk factors, and indicators8 for when it happens. In general terms, radicalisationis the process by which individuals believe that non-state violence is a valid means to address theirgrievances or to foster social and political change. There are a variety of risk factors which have been
identified as rendering an individual more susceptible to becoming radicalised. While there is no absoluteconsensus on what all these factors are, some key areas include individual socio-psychological factors, social
factors, economic factors, and beliefs and ideologies.9 What leads a person to violent extremism is likely to besome combination of push factors (negative perceptions of features of the current societal environment) andpull factors (the perceived positive features of adopting violent extremist identity).
Deconstructing the combinations of risk factors in another way, they can also be grouped according towhether they are structural motivators, individual incentives, or enabling factors, as described in Table 1.
Risk Factor
combinations:

Can include the following, depending on the specific context:

Structural
Motivators

Repression, corruption, unemployment, inequality, discrimination, a history of hostility
between identify groups, external state interventions etc.

Individual
Incentives

A sense of purpose, adventure, belonging, acceptance, status, material enticements, etc.

Enabling
Factors

The presence of radical mentors, access to online radical communities, social networks
with VE associations, access to weapons, an absence of family support, etc.

Table 1. Source: RUSIThere are a series of stages to developing a community-based initiative for P/CVE or counterradicalisation. A well-planned approach is needed so that the initiative has a greater chance of success in
reducing risk. Figure 2 shows the flow of these stages, as well as some of the main activities involved in eachone.

The ‘Foreign Fighters’ Resolution. Paragraph 16.S/RES/2178 (2014). The United Nations Security Council.
Schmid, A. (2013) ʻRadicalisation, De-Radicalisation, Counter-Radicalisation: A Conceptual Discussion and Literature Review’.
The International Centre for Counter-Terrorism Research paper.
9
See The Root Causes of Violent Extremism (2016). RAN Issue Paper.
7
8

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Figure 2. Stages of development of community-based initiatives10
Community-led initiatives to prevent and intervene in the radicalisation process can have an impact inways that are responsive to local realities. This equally applies to rehabilitation and reintegration initiatives
for VEOs, which come in different forms. First, the community is itself a source for external experts who canbe integrated into the team that is supporting the rehabilitation and reintegration of offenders. Such experts
include local religious leaders 11 and well-known charismatic figureheads12, who, in coming from the samecommunity as the VEO, are well placed to build a good degree of legitimacy in the eyes of the offender.
Another form of rehabilitation and reintegration initiative is one that is entirely based in the community.
The difficulty with this can be that community actors who are trained and equipped to run counterradicalisation initiatives are likely to be few in number. Steps to overcome this challenge include engaging
community actors, providing them with training, and creating a supportive network around them by making
helpful connections. Ultimately, they will be empowered to deliver interventions.13 The whole community isalso then in a stronger position to build resilience to violent extremism. Some of the programmes will besmall-scale and specialised, such as youth projects or engaging with community leaders. This allows for a
programme to be put in place with fewer initial resources and for more concrete aims to be set, usually, but
not exclusively, to reduce offendersʼ potential risk factors.
One advantage of community-based programmes for all kinds of offenders, and not just VEOs, is they canbe alternatives to custody, which may reflect the best interest of the individual. Mechanisms for diversion
from formal legal proceedings are a means of channelling someone away from involvement in crime and, in
the appropriate conditions, can be used in cases of violent extremism. This is especially important as aconsideration for juvenile offenders who stand to gain a lot from the rehabilitative and non-punitive effects.14
Diversion can be instigated from the time of apprehension (before arrest) to any point up until the final
disposition hearing (the sentencing stage of the juvenile proceedings) and during pre-trial detention wherever
it occurs.15 These mechanisms would then operate in the community and can involve different actors from it.
Communities are sometimes reluctant to accept the return of former VEOs.16. This is due to an
Arispe, I. (2017). ʻProgramming community-led interventions in CVEʼ. Lecture at Specialized Training on International
Criminal Law and Global Threats to Peace and Security ‒ Counter-Terrorism UNICRI, Turin.
11
Additional Guidance on the Role of Religious Scholars and other Ideological Experts in Rehabilitation and Reintegration
Programmes (2013). United Nations Interregional Crime and Justice Research Institute12
Roundtable Expert Meeting & Conference on Rehabilitation and Reintegration of Violent Extremist Offenders: Core Principles& Good practices (2012). ICCT Background Paper.
13
Arispe, I. (2017). ʻProgramming community-led interventions in CVEʼ. Lecture at Specialized Training on International
Criminal Law and Global Threats to Peace and Security ‒ Counter-Terrorism UNICRI, Turin.
14
Neuchâtel Memorandum on Good Practices for Juvenile Justice in a Counterterrorism Context (2015), Global Counterterrorism
Forum.
15
Mazzarese, D. & Bologna, C. (forthcoming). ʻAlternative Measures and Diversion in Youth Juvenile Justiceʼ, in Klima, N.
(forthcoming) ʻPathways towards an integrated and integral life-cycle approach on P/CVE in capacity buildingʼ. UNICRI, Turin.
1016167TH INTERNATIONAL TRAINING COURSE
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understandable fear and resentment held against this kind of offender. It is a considerable challenge toovercome in terms of reducing negative stigma and preparing the receiving community to accept the VEO
both passively and actively17. Establishing good relations with communities and reaching out to thedisaffected18 in particular are the basis of soliciting any community backing and involvement in VEO
rehabilitation, as indeed with any P/CVE initiative. Strategic communication between stakeholders insideand outside these communities is a useful initiative in this regard.19 In cases where criminal conviction ofstrongly suspected VEOs is unlikely, including returning foreign terrorist fighters in communities may be thesole opportunity to rehabilitate, making their engagement all the more important.
Monitoring and evaluation are vital steps in community-based initiatives, as they are in any programme.20
This makes clear goals and indicators of success all the more important to have at the design stage ofprogramming. Initiatives can then be evaluated against these indicators to see if the extent to which they
achieve their stated goals. There are notable challenges in this process, which include:
9999Issues of accessing the target population;
A highly sensitive topic;
Often indirect and intangible outcomes;
The lack of baseline data.

Planning the programme evaluation early on helps to prepare for these issues before they arise. Whatneeds to be taken into account at the planning stage are the goals and indicators, the methods andinstruments for data collection, the frequency of data collection, and identifying actors who can facilitate thisprocess.
As mentioned in the former section, a UNICRI-led initiative on communities and countering radicalisationand violent extremism was piloted in the Sahel-Maghreb region. Smaller, innovative projects were launchedunder this more large-scale initiative. These projects targeted groups within civil society, particularly youth,
women, religious groups, the media, and community leaders.
In addition to programmes based purely in the community, such as the UNICRI-led initiative piloted in the
Sahel-Maghreb, there is also an opportunity for initiatives that bridge some of the stages of the cycle for more
continuity in the rehabilitation and reintegration efforts.21 An example already given is the preparation ofcommunities through strategic communication when it is anticipated that VEOs will re-enter them. Other
examples are involvement of community actors with pre-release programmes, halfway houses, and actors
from prison-based programmes collaborating with community members to prepare for the offenderʼsreintegration. This acknowledges once again the importance of communities effecting sustained behaviouralchange for the individual offender by taking an active role in the process.

IV. CONCLUSION
The community represents a stage imbedded in the cycle of opportunities for counter-terrorism
intervention focussed on the individual VEO. The reasons for this are that communities are the societal
settings for a usually large and diverse group of people, any of whom could be at risk of being radicalised toviolence. Thus, community-based initiatives are instrumental to the early prevention stage. They are likewise
the settings where convicted VEOs re-enter society. This can be a very delicate issue because of a reluctanceto accept these offenders. Efforts to engage communities generally through strategic communication, andcommunity actors specifically as they could be directly involved in VEO reintegration and rehabilitation, are
UNICRI training for religious leaders, Bamako, Mali, 27-28 April 2017.
See Veldhuis, T. (2012) Designing rehabilitation and reintegration programmes for violent extremist offenders: A realist
approach. ICCT Research Paper;
18
Lister, C. (2015) Returning foreign fighters: Criminalization or reintegration? Brookings Institution.
19
For examples of this see Handbook on the Management of Violent Extremist Prisoners and the Prevention of Radicalization toViolence in Prisons (2016) United Nations Office on Drugs and Crime.
20
Arispe, I. (forthcoming). ʻEvaluating Counter Violent Extremism(CVE): A Fundamental Challenge to be Addressedʼ, UNICRI,
Turin.
21
Bologna (2017). ʻThe United Nations in Countering Terrorism and Introduction to UNICRI Initiativesʼ, UNICRI, Turin.
16
17

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the first step in starting a community-based initiative. Community involvement at these preventative andrehabilitative stages are of course the major focus in the discussion about community-based initiatives. In
reality though, the community never stops being important, no matter where the offender is in the cycle.
Creating bridges between stages of the cycle is another way to enhance the existing opportunities for the
successful rehabilitation of offenders on their way to leaving violent extremism behind.
BIBLIOGRAPHY
9Arispe, I. (forthcoming). ʻEvaluating Counter Violent Extremism (CVE): A Fundamental Challenge
to be Addressedʼ, in Klima, N. (forthcoming). ʻPathways towards an integrated and integral life-cycle
approach on P/CVE in capacity buildingʼ. UNICRI, Turin.

9 Arispe, I. (2017). ʻProgramming community-led interventions in CVE. Lecture at Specialized
Training on International Criminal Law and Global Threats to Peace and Security – CounterTerrorismʼ, UNICRI, Turin.
9 Bologna (2017). ʻThe United Nations in Countering Terrorism and Introduction to UNICRI
Initiativesʼ, UNICRI, Turin.
9Council of Europe Handbook for Prison and Probation Services regarding Radicalisation and Violent
Extremism (2016). European Committee on Crime Problems (CDPC) and Council for Penological Cooperation (PC-CP) 2 rev 4.

9 Lister, Charles (2015). Returning foreign fighters: Criminalization or reintegration? Brookings
Institution.
9

Klima, N. (forthcoming). ʻPathways towards an integrated and integral life-cycle approach on P/CVE
in capacity buildingʼ, UNICRI, Turin.

9

Mazzarese, D. & Bologna, C. (forthcoming). ʻAlternative Measures and Diversion in Youth Juvenile
Justiceʼ, in Klima, N. (forthcoming). ʻPathways towards an integrated and integral life-cycle approachon P/CVE in capacity buildingʼ. UNICRI, Turin.

9Counterterrorism Forum (2015), Neuchâtel Memorandum on Good Practices for Juvenile Justice in a
Counterterrorism Context. Available at: <https://www.thegctf.org/Portals/1/Documents/Toolkitdocuments/English-Neuch%C3%A2tel-Memorandum-on-Juvenile-Justice.pdf>.

9Roundtable Expert Meeting & Conference on Rehabilitation and Reintegration of Violent Extremist
Offenders: Core Principles & Good practices (2012). ICCT Background Paper.

9 The Root Causes of Violent Extremism (2016). Radicalisation Awareness Network Issue Paper.
9 Schmid, Alex (2013) Radicalisation, De-Radicalisation, Counter-Radicalisation: A Conceptual
Discussion and Literature Review. The International Centre for Counter-Terrorism Research paper.
9 Veldhuis, Tinka (2012) Designing rehabilitation and reintegration programmes for violent extremist
offenders: A realist approach. The International Centre for Counter-Terrorism Research Paper.
United Nations Documents

189Additional Guidance on the Role of Religious Scholars and other Ideological Experts inRehabilitation and Reintegration Programmes (2013). United Nations Interregional Crime andJustice Research Institute.

9

Handbook on the Management of Violent Extremist Prisoners and the Prevention of Radicalization toViolence in Prisons (2016). United Nations Office on Drugs and Crime.

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United Nations Resolutions
9

United Nations Security Council. Paragraph 16. S/RES/2178 (2014). The ‘Foreign Fighters’
Resolution.

9

United Nations General Assembly Resolution (A/RES/60/288) (2006) The United Nations Global
Counter-Terrorism Strategy.

19