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PREVENTING VIOLENT 

EXTREMISM IN SCHOOLS

JANUARY 2016

High school students are ideal targets for recruitment by violent 

extremists seeking support for their radical ideologies, foreign fighter 

networks, or conducting acts of targeted violence within our borders. 

High schools must remain vigilant in educating their students about 

catalysts that drive violent extremism and the potential 

consequences of embracing extremist beliefs.
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TABLE OF CONTENTS

THE ISSUE PAGE 3

OUR SOLUTION PAGE 4

FORMS OF VIOLENT EXTREMISM PAGE 5

BEHAVIORAL DYNAMICS PAGE 6

CATALYSTS THAT DRIVE VIOLENT EXTREMISM PAGE 7

CONCERNING BEHAVIOR PAGE 15

OUTCOMES OF EMBRACING VIOLENT EXTREMISM PAGE 18

WHO SHOULD I CONTACT AND WHEN? PAGE 21

COMMUNITY INTERVENTION DECISION POINTS PAGE 24

RECOMMENDATIONS FOR PREVENTING VIOLENT EXTREMISM PAGE 25

CONTACTING THE FBI PAGE 27
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The Reality: 

ISIL messaging likely influenced a 17-year old student to 

create, produce, and disseminate violent extremist 

messaging via social media to radicalize other youth to 

violence. The youth connected with violent extremists 

and like-minded aspirants to distribute ISIL messaging to 

a network of friends and followers on multiple social 

media accounts.

THE ISSUE

Framing the Threat

Despite efforts to counter violent extremism, the threat continues to evolve within our borders. 

Extremism and acts of targeted violence continue to impact our local communities and online 

violent propaganda has permeated social media. Countering these prevailing dynamics requires 

a fresh approach that focuses on education and enhancing public safety—protecting our 

citizens from becoming radicalized by identifying the catalysts driving extremism. 

Emerging Trends

Youth are embracing many forms of violent extremism; those perpetrated by terrorist 

organizations or other domestic violent extremist 

movements, to those maintaining biases towards 

others due to their race, religion, or sexual 

orientation. Youth aged 13 – 18 are actively engaged 

in extremist activities including online 

communication with known extremists, traveling to 

conflict zones, conducting recruitment activities, or 

supporting plotting against U.S. targets. These 

factors signify the potential for increased risk within our schools and local communities. 

Although violent extremists are predominantly male, there are noted increases in the number 

of females embracing violent radical ideologies due in part to their roles becoming more 

defined. Extremist organizations actively seek females to fill operational roles, including 

carrying out attacks in the Homeland or traveling to fight—in addition to historic supportive 

activities such as fundraising or traveling to marry foreign fighters. 

Impact on Schools

As this threat evolves and more youth embrace extremist ideologies, it places a growing burden 

on our educational system to provide appropriate services to students who view hatred or 

targeted violence as acceptable outlets for their grievances. To complicate matters, youth 

possess inherent risk factors making them susceptible to violent extremist ideologies or 

possible recruitment. A current body of research on developmental behaviors, which is 

discussed later in this guide, suggests that a youth’s risk factors and stressors, if not properly 

addressed through personal actions or third-party intervention, can lead to negative outcomes 

in the form of suicide or violence against others. 

Our educators are in a unique position to affect change, impart affirmative messaging, or 

facilitate intervention activities due to their daily interactions with students. These interactions

allow for observing and assessing concerning behaviors and communications—students 

embracing extremist ideologies and progressing on a trajectory toward violence. 
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Educating, building skills, and assisting students with developing strong social and emotional 

well-being are essential components to preventing violent extremism and other types of violent 

acts. These preventative measures diminish the likelihood of schools becoming potential nodes 

of radicalization or recruitment hubs for violent extremists.

OUR SOLUTION

This document serves as a guide to educate school personnel about at-risk behaviors and 

activities that assist students with reducing social and psychological commitment to violence as 

a method of resolving a grievance. This guide can be a powerful tool to help empower schools 

and local communities who play prominent roles in building resilience and providing influence 

for youth. 

The FBI is committed to assisting schools with understanding the drivers of violent extremism 

which are more fully described herein. Drivers of violent extremism can be addressed by:

 Building resilient schools through enhanced student social and emotional well-being;

 Increasing awareness about the forms and dynamics of violent extremism;

 Enhancing information sharing among those stakeholders who can provide support and 

services to students; 

 Facilitating disengagement programs to turn at-risk youth away from violent 

trajectories; 

 Leveraging school programs to deter youth from embracing extremist ideologies; and

 Fostering the ideals of diversity, inclusion, and tolerance, while upholding Constitutional 

freedoms and rights under the law. 

This guide encourages sustainability and long-term success by:

 Raising awareness on the catalysts driving violent extremism within our communities; 

 Establishing collaborative grass roots initiatives fostering community buy-in and,

 Facilitating intervention activities within our schools. 

Law enforcement cannot arrest its way out of violent extremism. Countering violent extremism 

is a shared responsibility between law enforcement, civic leaders, and their communities.

Schools share in this responsibility within their local communities, which builds resiliency 

against the catalysts driving violent extremist activities. Schools should remain a healthy 

environment for learning, personal growth, physical and cognitive development, and not be 

infused with extremist or hateful rhetoric. Communities can grow stronger against outside 

influences targeting our youth by informing about the perils of violent extremism. These 

collaborative efforts will help youth make informed decisions on the impact violent extremism 

poses to their lives, families, and communities. 
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FORMS OF VIOLENT EXTREMISM

The FBI is a leader in preventing Homeland attacks and educating local communities and 

families about the impact of violent extremism. In recent years, local communities were 

targeted by myriad types of violent offenders including active shooters, terrorists, gangs, 

criminal enterprises, human traffickers, and online predators. The motivations behind these 

acts suggest financial gain, a personal or ideological grievance, or feeding on vulnerable youth. 

As these threats evolve within our communities, a corresponding impact within our schools also 

evolves. 

The FBI’s Countering Violent Extremism (CVE) program addresses these emerging issues. The 

CVE mission identifies the catalysts and grievances motivating individuals to advocate violence 

as a solution to a perceived grievance and facilitates alternative behaviors to guide individuals 

down a less destructive path. 

This program focuses on one aspect of violence prevention—that which is advocated for or 

perpetrated to address ideologically motivated grievances. This guide discusses three main 

categories of ideologically motivated violence: international terrorism, domestic violent 

extremism movements, and hate crimes. 

International Terrorism

Designated Foreign Terrorist Organizations (FTOs): The U.S. Department of State defines FTOs

as organizations that advocate violence or conduct violent activities against U.S. interests 

domestically and abroad. The FBI protects the Homeland and U.S. interests through 

investigation and disruption of terrorist operations perpetrated by these FTOs. Many terrorist 

organizations continue planning or plotting external operations against U.S. interests and our 

allies. 

Since 9/11, the U.S. government’s efforts to disrupt and dismantle Al-Qa’ida’s terrorist activities

made successful gains but the terrorist organization is still a viable and persistent threat. An 

international terrorist landscape that was once controlled by Al-Qa’ida is now dominated by the 

Islamic State in Iraq and the Levant (ISIL). 

ISIL’s emergence and growth is threatening our borders and youth, who are targets of ISIL’s

recruitment efforts. 

Domestic Violent Extremism

Domestic Violent Extremism Movements: Domestic violent extremism is defined as individuals 

or groups attempting to advance social or political beliefs through force or violence and in 

violation of federal law. The FBI recognizes several domestic violent extremism movements, 

including but not limited to white supremacists, animal rights and eco-terrorists, and antigovernment or radical separatist groups. There is no specific crime of domestic terrorism, but 
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rather the individuals or groups are investigated based on a specific criminal violation. 

Violations include hate-based activities, weapons violations, or possessing a destructive device. 

As some adults embrace domestic violent extremist ideologies, their beliefs can permeate 

family norms, oftentimes influencing their children. This dynamic fosters biases leading to 

hatred and intolerance, and drives the need for action.

Hate Crimes

Hate crimes: A hate crime is violence or the threat of violence based on a victim’s actual or 

perceived race, national origin, religion, or other protected classification. For example, the 

Matthew Shepard and James Byrd Jr. Hate Crimes Prevention Act of 2009 makes it a crime to 

willfully cause or attempt to cause bodily injury to another based on the target’s actual or 

perceived race, religion, color, national origin, gender, disability or sexual orientation. Other 

federal hate crime statutes prohibit using force or the threat of force to interfere with 

employment, housing, access to public accommodations, and other federally protected rights, 

based on certain protected classifications, or to interfere with religious exercise.

BEHAVIORAL DYNAMICS

Behavioral Models

Numerous behavioral models outline the dynamics and factors leading to violent extremism. 

Most notably, violent extremism is not a linear progression, but an evolving dynamic situation 

involving numerous factors, catalysts, inhibitors, and mobilization variables. Behavioral experts 

hypothesize that the efforts of those seeking to combat radicalization can be informed by 

consideration of other models of social behavior and development, including:

 The Pyramid Model – promoting a child’s social development through early intervention 

and the prevention of social-emotional delays or the occurrence of challenging behaviors. 

An at-risk child may exhibit developmental delay or disorders, resulting from low quality 

supportive environments. 

 Social Identity Theory – an individual’s self-image and status is directly connected to the 

group to which they belong, resulting in social categorization. A sense of belonging 

becomes an important factor in pride and self-esteem. The central theme is that group 

members seek to find negative aspects among other groups, which enhances their selfimage, but also might result in prejudice, hatred, and violence toward other groups.

 Gang Model of Criminal Behavior – a gang member feels de-individualized and willing to 

commit violent acts consistent with the gang’s behavior and feels less personal 

responsibility. This separation from one’s self results in less accountability and reduced 

self-awareness, and therefore, manifests in instances of deviant behavior. 
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 Causation Model of Juvenile Delinquency – a child is vulnerable to detrimental influences 

from familial, socioeconomic, educational experiences, or ideological factors, often 

resulting in criminal deviant behavior. Once exposed to dysfunctional norms, the child 

begins to exhibit behavior that is contrary to social expectations.

 Risk Analysis of Terrorist Attacks – an individual is thought to become “at-risk”, when 

three elements are present: threat to core values or beliefs, vulnerability, and 

consequence of one’s actions. These three elements are not independent of each other, 

but rather all must be present to result in an “at-risk” individual. The sum of these three 

elements equate to an individual’s risk to act on their intentions, subscribing to their 

motivation, intent, capability, opportunity, and psychological gain.

A main challenge for our schools is understanding the underlying catalysts associated with a 

student’s behavior and determining the form of ideologically motivated extremism the student 

has embraced. 

CATALYSTS THAT DRIVE VIOLENT EXTREMISM

A body of research conducted by mental health practitioners, academia, and social service

providers, documented three risk categories—adolescent, environmental, and entrance risk 

factors—that affect youth and their proper cognitive and physical development. 

Adolescent Risk Factors

According to the Missouri Department of Health and Senior Services, adolescence is marked by 

the transition from childhood to young adulthood and viewed as one of the most dynamic 

stages of human development. The characteristics of adolescence include physical, emotional, 

and intellectual changes, as well as changes in social roles, relationships, and expectations. 

Adolescence is characterized by redefining and developing relationships with parents, family 

and peers, and consists of not one developmental stage, but three inter-related periods:

 DEVELOPMENTAL PERIOD AGE RANGE

 Early Adolescence 10 – 14 years of age

 Middle Adolescence 15 – 17 years of age

 Late Adolescence 18 – 24 years of age

Each period of adolescence contains inherent expectations that cause an individual’s needs to 

fluctuate dramatically. As needs fluctuate, so do the associated risk factors. There are 

associative risks within schools from guns, gangs, drugs, bullying, sexual harassment, and

developmental issues that can result in violence, including suicide or targeting others. 

High schools are comprised of students in each adolescent developmental period creating a 

unique dynamic. High schools might be at greater risk and students may be more susceptible to 

embracing violent extremist ideologies, joining extremist organizations, or self radicalizing, if 
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they are unable to withstand the many influential factors and daily stressors in their lives. This 

dynamic also presents unique challenges for our educators—recognizing and understanding the 

underlying catalysts to violent extremist behaviors and designing grass roots initiatives to help 

students resist the temptations and lure of extremist organizations. 

The Virginia Youth Violence Project, administered by the Curry School of Education at the 

University of Virginia, developed a threat assessment model for addressing the underlying 

catalysts to concerning behaviors. The model emphasizes early attention to problems such as 

bullying, teasing, or other student conflicts before they escalate into violent behavior. 

Educators adopt a problem-solving approach vice a punitive zero-tolerance behavior 

modification approach. This new approach promotes student-staff interactions resulting in a 

more positive school climate in which students feel treated with fairness and respect.

Violent extremists primarily target adolescents due to developmental vulnerabilities. These 

vulnerabilities make them susceptible to recruitment efforts by groups offering personal 

support and providing a sense of meaning and belonging. Adolescents, like most individuals,

tend to choose group affiliations—social and antisocial—based on the “fit” of the group with 

their developmental needs. The type of group the individual gravitates towards is largely 

determined by accessibility, opportunity, and relationships formed over time. According to a

Psychiatric Times article entitled, Why are Young Westerners Drawn to Terrorist Organizations 

like ISIS, dated September 2015, researchers believe many adherents drawn to violent 

extremist organizations are not psychopaths or brainwashed, but rather everyday young people 

in social transitional stages in their lives. The desire to ascribe meaning to one’s life and being 

part of something much larger than oneself is an overriding wish in human nature. Researchers 

concluded that embracing violent extremism is due to vulnerabilities in human nature that are 

exacerbated by aspects of Western societies.

A student may use a relevant group as a standard of reference against which oneself is 

compared creating aspirational or associative dynamics.

Youth embracing domestic extremist movements (across any extremist ideology) are 

sometimes raised in an environment where racial, religious, or cultural bias is viewed as 

acceptable. This results in behaviors influenced by family involvement. Youth growing up in 

these environments are exposed to extremism at a very young age, which permeates their 

values, and aids the formulation of radical beliefs. Youth view these forms of extremism as 

family norms, although they are not acceptable in mainstream society. This dynamic 

perpetuates the cycle of hatred and intolerance.

A student’s personal crisis or underachievement may trigger impulsive or violent acts.
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Environmental Risk Factors

According to the World Health Organization and other social services providers, adolescents 

exposure to environmental risk factors affect health and well being, coping skills to withstand 

life stressors, physical and cognitive development, and their ability to make prudent decisions. 

These environmental risk factors include nutrition; parents and families; neighborhoods and 

communities; cultural backgrounds; school districts; access to civic organizations or social 

services; employment opportunities; availability of proper health care; societal norms and

socio-economic status. 

One or several of these factors might affect a student’s coping ability and drive acceptance of 

violent extremist ideologies. Oftentimes, students become disillusioned by factors outside of 

their control thus giving way to resentment, emptiness, loneliness, or feeling lost and

abandoned. Cultural differences can intensify these feelings leading to isolation or alienation. A 

nurturing environment might help a student withstand the threat from violent extremists, while 

a dysfunctional environment might lead to greater acceptance or adherence to extremist 

philosophies.

Students act on feelings of isolation, alienation, disenfranchisement, sense of belonging, 

adventure, glory, or thrill seeking.

Entrance Risk Factors

An article in the FBI Law Enforcement Bulletin, Building Resilience to Violent Extremism – One 

Community’s Perspective, dated April 2014, cited a recent cultural assessment conducted on 

youth, parents, and community service providers in a select American community. This article 

outlined entrance risk factors that create opportunities for entering into violent extremism and 

how protective resources could stop, delay, or diminish such opportunities. 

An entrance risk factor is defined as an opportunity provided to an individual to allow for access 

to an activity or initiate a negative behavior outside the purview of friends, family, peers, or 

associates. 

These findings suggest prevention activities should be directed at three factors contributing to 

potential involvement in violent extremism: 

 Unaccountable time and unobserved space; 

 Perceived social legitimacy of violent extremism; and 

 The potential for contact with violent extremists. 

Each of these entrance risks contribute to a student’s initial involvement in or facilitating 

acceptance for violent ideologies occurring out of their family’s view; therefore, without their 

direct knowledge or consent. 

Unaccountable or unobserved space provides a window of opportunity for students engaging in 

activities contrary to their family norms or desires, thus creating additional vulnerabilities and 
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opportunities for exposure to violent extremists or violent rhetoric. Students in unobserved 

space may contact or be contacted by a known violent extremist, who assesses the youth for 

possible future recruitment. Students’ consumption of violent propaganda while in unobserved 

space may ignite the radicalization and mobilization process. Limiting idle times and 

unobserved space provides less time to engage in negative activities. Replacing idle times with 

positive social interactions may reduce activities in unobserved space. 

Violent extremists attempt to legitimize their actions as appropriate and necessary to help the 

cause, or wage war to protect culture, heritage, or beliefs. Students can readily view stories on 

nightly news broadcasts, internet websites or social media forums, which highlight foreign or 

national policy. These stories serve as catalysts or promote grievances for extremist 

organizations. Students assign meaning to these conflicts building resolve and support for the 

call to action. 

To offset its impact, communities and governmental entities should promote open dialogue 

about underlying issues or craft affirmative messaging to counter this violent rhetoric.

Communities and families are credible voices to overcome this daunting challenge and turn 

youth away from violent trajectories—endorsing positive family ideals and nurturing 

environments. Parents, older siblings, and educators may be effective in facilitating discussions 

with adolescents and fostering critical thinking resulting in alternative behaviors. Also, some 

immigrant families may not be sufficiently present in a youth’s life due to work constraints to 

foster critical thinking. In this scenario, educators and trusted community partners can aid that 

process to ensure a youth is afforded the appropriate resources.

This cultural assessment concluded that risk and resiliency are properties of the community and 

its families that can be modified based on community-based or family-focused prevention 

activities. These efforts empower schools, families, and civic leaders, raising the level of 

involvement in local resiliency efforts.

Social Media 

The inundation of violent extremism in mainstream culture can be aligned in part with 

technological advances. As new technologies have 

emerged, so too has the virtual spread of violent 

extremism. 

Violent extremist organizations’ ability to transcend 

geographical boundaries is made possible by the 

internet and the use of social media. Violent 

extremists troll for youth in social media or online 

forums, to spot, assess and recruit those who are 

vulnerable. This targeting of youth is increasingly 

putting them “at-risk” as many are tech-savvy and 

often spend large quantities of time on social media 

networks. Today’s youth strongly depend on social 
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A 2009 essay by former Al-Qa’ida recruiter and 

militant cleric, Anwar Aulaqi, labeled the internet as a 

great medium for spreading the call of Jihad and 

following the news of the mujahedeen. Aulaqi 

referred to the internet as WWW.Jihad and urged 

supporters to establish online discussion forums, 

websites, and email lists to initiate conversations and 

expand the jihadist communities.

media and seek immediate connections or gratification. This change in inter-personal 

communications often replaces normal face-to-face interactions. The need for connectivity, 

acceptance, or sense of belonging can drive their overall needs, online activities, and their 

social sphere of influence. According to a Psychiatric Times article entitled, Why are Young 

Westerners Drawn to Terrorist Organizations like ISIS, dated September 2015, researchers 

opine that youth can be easily tempted by the false allure of quick and easy social connections 

amidst an individualistic society from which they feel alienated.

Physical contact with extremist organizations has diminished over time.

The internet now affords violent extremists a veritable playground for spotting and assessing 

individuals who are receptive to a specific grievance or 

ideology and for sharing radical thoughts and beliefs. A 

growing body of research suggests the internet acts as 

a catalyst to sustain radicalized beliefs more so than 

acting as a primary catalyst towards radicalization. 

Regardless of the mechanism, once a violent extremist 

makes contact with youth, they begin assessing his or 

her responsiveness for supporting a violent extremist belief or acting on behalf of its underlying 

grievance.

The internet serves as a primary catalyst to sustain radicalized beliefs.

While online recruitment is one potential vulnerability, social media also provides youth a 

platform for identifying violent extremists or becoming curious about the subject matter to 

conduct research—gaining an appreciation or understanding of its principles. Youth may find 

the content appealing or attractive, especially when they meet others (peers or young adults) 

online, who are violent extremists and viewed as rational people. These online contacts offer 

meaning and understanding to the ideological underpinnings that drive acceptance of radical 

beliefs or support for future actions. These interactions result in bringing new supporters into 

the fold.

No single element is responsible for making a student vulnerable to violent extremists 

seeking to impart radical views on them. 
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Violent extremist recruiters often encourage their followers to transition their means of 

communication from open social media platforms to encrypted chat rooms—transitioning from 

overt lines of communication to covert, encrypted 

chats, facilitating extremism discussions and hindering

law enforcement’s ability to obtain electronic 

communications or evidence pursuant to a court order 

or warrant. Law enforcement defines this phenomena 

as “Going Dark,” limiting an understanding of extremist 

communications or future intentions. Extremists might possess a working knowledge of hacking 

or anonymizer capabilities, further complicating the ability to lawfully trace communications.

Pre-operational planning, communications, or target selection facilitated via social 

media.

A threat landscape, once dominated by terrorist organizations and their hierarchical command 

and control structures, is now characterized by decentralized and distributed nodes of 

influence. While the volume of violent 

extremist propaganda may vary depending 

on the type of network structure, the ease 

of access to violent extremist propaganda 

on social media platforms frequented by 

youths remains a concern. Even limited 

exposure to violent extremist propaganda 

may result on a path towards violent 

extremism.

These nodes alter the violent extremist 

landscape by potentially exposing youth to a heightened number of extremists and quantity of 

violent propaganda. These horizontal relationships–often with peers or those of the same 

generation–make them more vulnerable to possible radicalization and recruitment.

Vast social networks promote agility in recruitment, radicalization, planning, and 

mobilizing to violence.
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Violent Propaganda

Internet-based Propaganda

The internet provides access to endless streams of violent propaganda inspiring others to 

action, glorifying extremist lifestyles, or perpetuating 

the spread of hatred and intolerance. The difference 

between protected speech and illegal incitement can 

be a very fine line. Espousing anti-U.S. sentiment or 

extremist rhetoric is not a crime and is protected First 

Amendment activity. The issue is not if the individual

voiced his/her support, but rather has advocated 

imminent violence in support of an extremist 

organization and that violence is likely to occur as a 

result. As individuals consume violent propaganda, it 

might resonate with them or reinforce their perceived 

grievance. This results in a strengthening of beliefs 

and aids development of radical views or a willingness to use violence in support of an ideology 

or grievance.

Consumption of violent propaganda is a primary catalyst in self radicalization.

Online Magazines

Several extremist organizations disseminate online magazines intended for their supporters. 

According to analysis on Al-Qa’ida’s “Inspire” magazine 

conducted at Georgia State University, the goals of these 

online magazines are three-fold: providing a platform to 

disseminate information or propaganda to supporters;

motivating supporters to act; and providing the tools to 

mobilize.

Online magazines focus on inspiring believers while 

simultaneously attacking their enemies through 

voluminous and often erroneous violent propaganda. 

These magazines emphasize power and geographical 

dominance, while decrying western policies and European

cultures. They also serve to perpetuate their grievances while glorifying the actions of martyrs. 
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These online magazines serve as reference documents outlining possible targets, summarizing

protocols for weapons acquisition, and serving as a how-to guide for bomb-making capabilities.

The magazines are professionally designed and of high quality. 

They are disseminated on a massive scale ensuring penetration 

of their radical messages, and disseminated in multiple 

languages, allowing them to target a particular population for 

manipulation or radicalization. This may affect some of the U.S.

Diaspora populations, which either don’t speak English or 

prefer their native language, thus impacting multiple 

generations. Posting these magazines in online forums in 

English specifically targets western and European audiences.

Further, these organizations either have access to individuals 

from the regions they are targeting with their messaging or are 

very adept at synthesizing the region’s local concerns and manipulating those issues to 

advocate their position.

They also contain flashy graphics, mimicking those in present day video games. The primary 

motivators behind these online magazines are drawing attention to their cause and enticing 

more supporters into the fold—notably youths who view the content as appealing.

Engaged families are the first defense to monitor internet usage, content, or violent 

propaganda alerting to possible extremist beliefs, contacts, or future intentions.

Gaming

Online Gaming

Online gaming adds yet another level of vulnerability for our youth. We assess that online 

gaming is sometimes used to communicate, train, or plan terrorist activities. Many youths are 

very proficient in gaming techniques, online 

communications, and user forums, leading to 

interactions with online gaming enthusiasts, who 

are assessing vulnerable youth for possible 

recruitment opportunities. These online contacts 

might be supporters of an extremist organization 

and actively recruiting for their cause. 

A 2003 study conducted by Loyola UniversityChicago suggests online gaming promotes social 

interactions, develops expressive skills, aids 

strategy formulation, and promotes planning in a simulated environment. The gaming 

environment facilitates social connections by strangers sharing common interests. Online 

gaming can also teach rudimentary warfare protocols, rules of engagement, and other military 
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actions, which can be applied to real-life scenarios such as conducting an act of targeted 

violence.

CONCERNING BEHAVIOR

A Definition

The FBI defines violent extremism as encouraging, condoning, justifying, or supporting the 

commission of a violent act to achieve political, ideological, religious, social or economic goals. 

The FBI uses an intelligence-driven process in its daily investigative and analytical activities to 

conduct baseline collections and assessments. Empirical data is extracted from investigations 

to assist in the identification of concerning behaviors. 

Concerning behavior is defined as behavior that comes to the attention of third parties 

(bystanders) that suggests a possible future intention, resulting from a statement or action that 

causes concern. A 2002 Guide to Managing Threatening Situations and Creating Safe School 

Climates, drafted jointly by the U.S. Secret Service and the U.S. Department of Education, 

suggested acts of targeted violence are rarely impulsive and some may be preventable through 

the detection of planning behavior. This concept also applies within the violent extremism 

context, as students on the pathway to becoming radicalized or mobilizing, often exhibit 

behaviors, indicating support for extremist ideologies or highlighting future intentions. 

The FBI does not advocate the application of any psychological or demographic “profiles” or 

check lists of indicators to identify students on a pathway to radicalization. Rather, the FBI 

endorses taking a holistic approach in considering the totality of concerning behaviors in the 

appropriate context, assessing the likelihood an individual is progressing on a trajectory to 

radicalization and/or future violent action in furtherance of an extremist cause.

The 2002 Safe School Initiative (SSI), drafted jointly by the U.S. Secret Service and the U.S. 

Department of Education, shares the same conclusion. The SSI stated the use of profiles is not 

an effective tool for identifying students who pose a risk for targeted violence or assessing the 

risk that a particular student may pose for targeted violence. Rather, schools should focus on a 

student’s behaviors and communications to determine if the student appears to be planning or 

preparing for an attack.

The SSI conclusion also applies within the violent extremism context, as students on the 

pathway to becoming radicalized often exhibit behaviors or engage in communications, 

indicating support for extremist ideologies or highlighting future intentions. This progression is 

paramount to educators who rely on recognition of such concerning behaviors and 

communications to initiate the disengagement process intended to direct students down a less 

destructive path.

Violent extremists do not share a “typical” profile. They might be self-radicalized, selftrained, and self-executing.
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Radicalization 

Radicalization is defined as the process by which individuals come to believe that engagement 

in or facilitation of nonstate violence to achieve social and political change is necessary and 

justified. Radicalization enabling factors can be personal, community, group, socio-political, or 

ideological. Research conducted on youth-related radicalization indicates a vulnerability 

concerning a distinct identity, meaning, adventure, and belonging in their lives. However, 

factors driving or inhibiting radicalization change over time and vary individually.

Normal developmental vulnerabilities common to adolescents make some amenable to the 

influence of violent extremism, a trajectory that through inhibitors such as community 

engagement, mentoring, therapy, and education can be altered or suppressed. 

Enabling factors advance the radicalization process while inhibitors deter progression.

Mobilization

Mobilization is defined as the process when a radicalized individual prepares for violence or 

engages in violence to reinforce their beliefs. Generally, mobilization to violence is

premeditated and consists of acts directed against targets symbolic to their particular cause. 

The FBI and other experts studying these issues observed similarities in the pre-attack 

behaviors of lone offenders and those perpetrators from other forms of targeted violence, 

including terrorists. 

The student’s acceptance of lethal violence to advance an ideological, political, social, or 

religious cause.

Mobilizing is a behavioral pre-cursor to an act of 

targeted violence. The concept of “targeted violence”

contains unique characteristics that befit most 

offenders:

 Targeted violence is the end result after a 

process of thinking and behavior; 

 Perpetrators do not “just snap”; and

 Successful attacks typically require planning 

and preparation related to key activities

(timing, tactic, target, capability).

A shift in attacks from directed at specific targets to targets of opportunity.
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In 2000, the FBI conducted a study of school violence, The School Shooter, resulting in the 

identification of “leakage”—a common warning behavior for students advocating violence. 

Leakage occurs when a student intentionally or unintentionally reveals clues to feelings, 

thoughts, fantasies, attitudes, or intentions that signal an impending act. These clues emerge as 

subtle threats, boasts, innuendos, predictions, or ultimatums and are conveyed in numerous 

forms (e.g. stories, diaries, journals, essays, poems, manifestos, letters, songs, drawings, and

videos). 

Leakage is one of the strongest clues prefacing a violent act.

According to the Indicators of School Crime and Safety, published in July 2015 through a 

partnership with the U.S. Department of Education and the U.S. Department of Justice - Office 

of Justice Programs, there are many factors impacting school safety. These factors include 

victimization, teacher injury, bullying, cyber-bullying, fights, weapons, gangs, drugs, and alcohol 

abuse. These factors resulted in death, suicide, theft, simple assault, property damage, hate 

crimes, intimidation, and forced sexual offenses. This study highlighted valuable metrics and 

insight into the current school safety environment:

 Nearly 85% of public schools reported a criminal incident, resulting in an estimated 1.9 

million crimes.

 Over 23% of public schools reported that bullying among students occurred on a daily or 

weekly basis; 22% of students reported being bullied at a public school.

 Nearly 7% of students reported being cyber-bullied during the school year.

 Over 16% of public schools reported gang activity.

 Over 2% of public school reported cult or extremist activities.

 Nearly 7% of students reported being the target of hate-related words and 25% of 

public schools reported hate-related graffiti.

 Nearly 88% of public schools utilize controlled access, monitoring, locking entrances, or 

security staff to enhance school safety.
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Leakage applies to today’s violent extremism environment, particularly through discovery—the 

uncovering of posted electronic messages, pictures, or 

videos on social media platforms that are of a violent 

nature or support violent extremist ideologies. Discovery 

can also take the form of written or verbal communications 

that reveal planned travel overseas or a willingness to 

commit a violent act. 

To address leakage, a body of research suggests 

interactions extremists have with individuals occurring 

within their own social circles provide clues to their future 

intentions. Third parties who interact with radicalizing 

youth are referred to as Bystanders—individuals such as 

family members, peers, authority figures, and strangers whose relationship and level of 

interaction with an extremist enables them to witness or become aware of activities or 

behavior that may indicate radicalization or mobilization to violence. A student’s interactions 

with a bystander provide opportunities for observations of suspicious behaviors and actions; or 

information relevant to future intentions. The key is communicating these observations and 

information in a timely manner to the proper authorities or a trusted community partner, 

mitigating a potential threat before an individual mobilizes to violence.

No behaviors depict an individual’s willingness to commit a violent act. 

The 2000 FBI School Shooter study suggests a student’s personality, family, school, and social 

dynamics must be analyzed by school administrators and counselors to determine how best to 

respond to concerning behaviors or communications. Recognizing behavior or communications 

indicative of radicalization leading to violence allows for a community’s preemptive action, 

including intervention or disruption, prior to mobilization. 

An intervention takes many forms, including risk mitigation and conflict resolution; or 

disengagement. An intervention is conducted by experts from multiple disciplines, and if 

unsuccessful, law enforcement executes a disruption to mitigate the threat to the local 

community.

OUTCOMES OF EMBRACING VIOLENT EXTREMISM

Abuse, Injury or Death

The actions of violent extremists result in multiple outcomes such as abuse, injury, death, or 

incarceration. 

For example, American youth traveled to conflict zones where education is no longer needed 

but instead received lessons in violent extremism and military training that includes proficiency 
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with AK-47s. Science, history, art, and sports are considered incompatible with the pursuit of 

the extremists’ cause. The indoctrination of youth is essential to sustaining violent agendas, and 

requires youth to disavow and disregard their parent’s wishes. When allowed to pledge support 

or conduct horrific acts on behalf of violent extremist organizations, it controls our youth and 

their beliefs for years to come.

Youth who traveled to conflict zones were subjected to bodily abuse including rape, fingernail 

removal, electric shock, and beatings, or forced to watch or participate in beheadings or 

assassinations of entire families. These actions strengthen the violent extremists hold on youth 

and their developing minds. Females are particularly at risk. They are sold into slavery, forced 

to become child brides, and commit atrocities on behalf of a violent extremist organization.

If a student succeeds in traveling to a conflict area, chances are great he or she will not return.

There are reported instances of individuals experiencing doubt and wishing to return to the 

U.S., who were assassinated by extremists for desiring to leave.

Victim

A student can perpetrate an act of targeted violence, but can also become a victim. Victims who 

are targeted include: members of a particular religious faith or racial population; United States 

government facilities, employees and their families; law enforcement personnel and their 

families; military personnel and their families; and, individuals whom violent extremists oppose. 

Additionally, members of the public have been innocent victims, along with individuals who 

speak out against others based on personally-held beliefs—a retaliatory action. 

Families often experience shame and are victimized because their children support extremist 

ideologies. Religious and social stigmas are attached to children joining criminal or extremist 

organizations. This results in a family’s rejection or ostracization within their local community.

Intervention

Intervention is not a new concept for schools who are already engaged in secondary and 

tertiary forms of prevention to address behavioral issues. 

Many schools already possess Crisis Response Teams or 

Behavioral Assessment and Care Teams in place to 

develop intervention strategies for students in need of 

support. Existing teams can expand their scope to include 

violent extremism-specific concerning behavior. 

Intervention strategies that address violent extremismspecific concerning behavior should involve those who 

can most appropriately respond to the student’s 

perceived grievance. The response should leverage the 

strengths of governments, community organizations, 

social service agencies, and other professionals to provide what is commonly referred to as an 

“Off-Ramp”. 
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The goals of intervention are fourfold: 

 Facilitate a student’s disengagement from a violent trajectory; 

 Facilitate a student’s disengagement from a violent ideology; 

 Design, develop, and implement an “Off-Ramp” specific to the student; and

 Assist with the student’s social and emotional well-being so they are better-equipped to 

be productive in the classroom and the community at-large.

The school formulates an intervention plan in conjunction with the community and non-law 

enforcement entities on the federal or state level. Ideally, an intervention cadre should contain 

professionals from the local community representing multiple disciplines such as mental health, 

social workers, law enforcement, school resource officers, faith-based organizations, and/or 

crisis intervention teams.

A community-led intervention program’s focus is disengagement or containment—resulting in 

violence prevention. 

 Disengagement – The process of reducing a student’s social and psychological 

commitment to violence and he/she no longer views violence as an answer to a 

grievance.

 Containment – Allows for increased engagement between a student and local 

community members or agencies.

The plan is tailored to the student, allowing the best community resource to address the 

underlying issues resulting in violent extremist beliefs. The plan or “Off Ramp” may involve 

mental health evaluations, social services, job skills counseling, housing support, religious 

education, or substance abuse counseling. 

The optimal outcome of an intervention is disengaging a student from a violent 

trajectory.

Interventions should also consider Conflict Resolution Education or Targeted School-based 

Social Information-Processing Interventions that aim to resolve disputes or direct prevention 

efforts to students who are at-risk for violence or already exhibiting concerning behaviors. The 

National Institute of Justice (NIJ), Office of Justice Programs, offers myriad evidence-based 

programs that provide strategies to manage conflict and develop social cognitive competence 

in school-aged children.
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Disruption

If a student continues on a trajectory to violence, the one remaining option is a law 

enforcement disruption. Violent extremists commit a wide 

array of criminal violations that occur when those with 

extremists views act with the intent to encourage, endorse, 

condone, justify or support violence. Historically, the FBI has 

investigated a variety of violent extremist actions: raciallymotivated violence, religiously-motivated violence, and 

socially-motivated violence. 

These types of violent actions result in disruptions, such as 

criminal arrests and convictions under federal and state 

charges, to include: 

 Material support for terrorism

 Conspiracy to kill, injure, or maim 

 Using a Weapon of Mass Destruction

 Providing financial support

 Providing false statements

 State weapons offenses

The FBI, state, local, or tribal law enforcement partners cannot arrest their way out of the 

current threat environment; however, the FBI is committed to providing options for youths to 

help them disengage from violent extremism or a trajectory to violence. Arrests remain a viable 

option, however, if disengagement activities are not successful.

WHO SHOULD I CONTACT AND WHEN?

The disengagement process begins when observations lead to contemplating two key 

questions: Who should I tell and When? The FBI advocates for the empowerment of school 

districts to affect change when concerning behavior or communications are exhibited by an atrisk student. 

The totality of concerning behaviors or communications provide context that aids 

assessment of an individual’s progression on a trajectory to radicalization or future violence.

Many times, fellow students or educators observe behaviors or are privy to another student’s 

communications and commitment to a violent ideology that may be indicative of future 

intentions. Students likely feel awkward, reluctant, or fearful discussing a fellow student and 

their beliefs. Educators may be reluctant to notify law enforcement of a student’s exhibited 

behaviors for fear of a law enforcement action. Overcoming these obstacles requires 
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establishing life lines between students, educators, and local communities, allowing for 

communication of information without fear of reprisal or becoming a target of fellow students. 

These relational life lines initiate disengagement while promoting awareness of an emerging 

threat within the school district. Students and educators are encouraged to convey their 

concerns and observations to trusted community partners, school resource officers, or a local 

law enforcement entity.

Based upon investigative data, a very small period of time exists between a youth embracing 

extremist ideologies to acting in furtherance of the ideology. Therefore, acting decisively is 

paramount to educators. There are limited opportunities for intervention with at-risk youth and 

schools must be cognizant of this. Law enforcement refers to the time between radicalization 

and crossing the threshold to a violent action as “flash to bang”. 

The time between “flash to bang” can be relatively small. 

The implications of communicating concerning behaviors or communications from at-risk youth 

are significant:

 Aids prevention activities;

 Enhances school safety;

 Aids a student’s disengagement from a violent trajectory;

 Fosters open lines of communication within the student body and administrators; and

 Enhances overall school climate.

Several intervention points that impact outcomes are available to schools and communities. 

Countering a potential negative outcome results when a school communicates observations 

and actions of an at-risk student to trusted community partners; or intervenes when a student 

embraces violent ideologies or acts on behalf of an extremist organization. As the graphic on 

page 24 illustrates, an act of targeted violence results from a spectrum of concerning behaviors, 

manifesting into several risk categories cited below:

 Disenfranchised – student feeling lost, lonely, hopeless, or abandoned;

 Mental Health – student exhibiting a mental health disorder;

 Group Supporters – student supporting a designated terrorist organization or a 

domestic extremist movement;

 HVE – Homegrown Violent Extremist inspired by Al-Qa’ida/ISIL;

 Active Shooter – student using violence to address a personal grievance;

 Foreign Traveler – student desiring to travel overseas and join a foreign fighter network; 

 Criminal Element – student conducting criminal activities for financial gain.

Violent extremism is not a linear progression but an evolving dynamic situation. 
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The following community partners/roles facilitate disengagement activities within high schools, 

including the initiation of interventions:

Community Roles In Disengagement

Schools:

Teacher Resource Officer Nurse

Coach Principal Administrators

Superintendents School Boards Guidance counselors

Grief counselors Volunteers

Community:

Community or civic leaders Faith-based leaders Mental health 

Hospitals Social Workers Crisis Intervention 

Family Physician Parents and family members NGOs

Coaches Scout troops Extra Curricular Leads

Law Enforcement:

Local Police Department County Sheriff State Police

Major City Chief District Attorney U.S. Attorney Office 

Local FBI field office FBI Resident Agency FBI CVE Program

The FBI encourages schools and their local communities to lead interventions of at-risk youth, 

unless the subject is mobilizing to violence. Interventions and corresponding action plans may 

consist of threat assessments, safety plans, progress updates, and re-assessments of the 

student. For a comprehensive intervention for an at-risk youth, schools should consider utilizing 

school administrators, faculty, counselors, and representatives from state/local law 

enforcement or school resource officers to staff your intervention teams. 

Schools may be reluctant to contact law enforcement on a student exhibiting concerning 

behaviors or communications. In these instances, schools should leverage community resources 

to alert them to these behaviors and communications, commencing the disengagement 

process. 

If a youth’s intentions are conducting a violent act, law enforcement (e.g. 

local/state/tribal/federal) should be notified to initiate disengagement or execute a disruption. 

Law enforcement will aid threat mitigation activities and enhance overall school and 

community safety efforts.

It’s imperative schools maintain a compendium of local law enforcement, civic leaders, and 

trusted partners to aid in developing an individualized school support network and action plan. 

Establishing a support network, if not already established, should be a priority for each school. 

These networks will facilitate future disengagement activities on students exhibiting at-risk 

behaviors or communications.
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Concerning Behavior – Community Intervention Decision Points
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RECOMMENDATIONS FOR PREVENTING VIOLENT EXTREMISM IN SCHOOLS

The following list of recommendations assists high schools with establishing collaborative 

partnerships within their local communities. 

 Establish Threat Assessment Teams

In 2013, the State of Virginia adopted House Bill 2344, mandating the creation of threat 

assessment teams (TAT) and procedures for intervention with students whose behavior 

poses a threat to the safety of school staff or students. Convening a TAT allows for 

intervention with students exhibiting concerning behaviors driven by personal and 

ideological factors. All states should consider legislative action or similar measures to 

curb the spread of extremism within their local communities. Legislation consistent with 

constitutional rights and freedoms should be a foundational component of a TAT. 

 Educate on the Role of Interventions

Local school officials play an integral role in the intervention process, especially for atrisk youth radicalizing or mobilizing to violence. Faculty members are crucial partners in 

identifying at-risk youth and initiating the disengagement process. A typical intervention 

is comprised of a multidisciplinary team representing various job roles within the local 

community, including schools. The FBI is developing training which educates school staff 

on the intervention process and its role in disengagement.

 Empower School Boards, Administrators, and Faculty

School administrators and faculty are empowered to initiate disengagement activities or 

craft affirmative messages that dissuades youth from dangerous paths. These efforts 

help students resist the temptations of extremist messages and their violent agendas.

Schools should embrace diversity in school programming, daily interactions, and 

affirmative messaging thus eliminating cultural stigmas, intolerance, and prejudice. 

These factors often promote hatred resulting in targeted violence. 

 Enhance Domain Awareness

Communities have access to resources to assist youth in addressing risk factors and 

overcoming developmental issues and socio-economic obstacles. Schools should 

maintain an inventory of trusted community partners, mental health practitioners, 

social services, and state/local/tribal law enforcement to build a localized collaborative 

network. These collaborative partnerships will aid high schools during a time of need 

and will eventually staff local intervention programs.
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 Strengthen Family Outreach and Engagement

Families are the first line of defense in keeping youth safe from violent extremism. High 

schools should develop outreach and engagement programs that educate families about 

the various forms of violent extremism and ways to identify at-risk youth or concerning 

behaviors and communications. In fact, many of the most fruitful and positive leads 

reported to authorities have come from concerned family members or community 

leaders. It is very important that schools engage the students’ families through PTA or 

other programs as a vital step to preventing the mobilization of possibly radicalized 

students.

 Implement Annual Violent Extremism Awareness Training

High schools can incorporate a two-hour block of violent extremism awareness training 

as part of their core curriculums for grades 9 – 12. To assist these efforts, the FBI 

developed a violent extremism awareness website that focuses on grades 9 – 12. The 

website is housed on https://www.cve.fbi.gov and educates youth on the perils of 

violent extremism and the effect on their lives, families, and communities. It is an 

interactive site comprised of text, games, quizzes, and media content.

 Establish Student-led Focus Groups to Address Safety Concerns

High schools should promote open communication through student-led focus groups 

representing the student body, its cultures, and concerns. Focus groups can address 

overall safety issues from active shooters, gangs, bullying, violent extremism, human 

trafficking, and online predators. This open communication leads to a better 

understanding of the risk factors and needs in the lives of adolescents. These efforts 

promote exchanges of ideas and a solution that enhances overall school safety and 

empowers students. To aid high schools, NIJ maintains a compendium of evidencebased strategies to combat existing risk factors and promote overall school safety. 

Strategies can be located at http://www.crimesolutions.gov. 

 Focus on Afterschool Programming

Most high schools are positioned to address overall student development through 

extensive afterschool programming such as sports or club activities. Student 

participation in one or more sanctioned activities promotes inclusion, team work, and 

builds self confidence. Schools can be instrumental in identifying employment 

opportunities for youth seeking to advance their job skills, allowing less idle time, to 

engage in other activities.
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 Leverage Alumni for Affirmative Messaging

High school alumni are positive role models for imparting affirmative messaging to the 

student body. These role models can discuss their concerns while in high school and 

impart best practices for coping with the daily stressors from high school while 

promoting cognitive and physical development. Success stories inspire and breed 

continued success and development within the student body, while helping students to 

resist the temptations of extremism.

 Develop Relational Life Lines

High schools should consider establishing a community day through which trusted 

partners, community and civic leaders, state/local/tribal law enforcement, and faithbased groups, come together to promote unity. A unified approach facilitates relational 

life lines that assist a student who feels targeted for recruitment or begins to embrace

extremist beliefs. A strong community support network promotes resiliency and helps

students disengage from extremist activities without fear of reprisal.

 Educate Faculty About Bystanders

Less than half of the individuals witnessing activities or behaviors that can lead to early 

intervention report their observations to community members or law enforcement. 

Encouraging increased reporting and intercession by third parties could improve the 

success of efforts to curb extremist acts in the U.S. 

If your high school has additional questions regarding violent extremism or desires information 

on other programs to build resiliency within your community, please contact trusted 

community partners or your local FBI office. To locate the nearest FBI office, please refer to our 

agency’s website: https://www.fbi.gov, clicking on the Contact Us tab.
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