COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Preventing Radicalisation to Terrorism and Violent Extremism: Strengthening the EU's Response
Date: 2014-01-15
Institutions: European Commission
Subjects: EU police cooperation, extremism, fight against crime, international cooperation, terrorism













EUR-Lex - 52013DC0941 - EN











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52013DC0941

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Preventing Radicalisation to Terrorism and Violent Extremism: Strengthening the EU's Response /* COM/2013/0941 final */









Communication from the Commission to the
European Parliament, the Council, the European Economic and Social Committee and
the Committee of the Regions
Preventing Radicalisation to terrorism and Violent
Extremism:
Strengthening
the EU's Response
1.      Introduction 
1.1 
Trends
and challenges
Since
the EU strategy for combating radicalisation and recruitment was last updated
in 2008, the trends, means and patterns of radicalisation have evolved and
broadened.
Firstly,
terrorism in Europe now finds its inspiration in a larger variety of
ideologies, as illustrated by the 2013 Europol TE-Sat report. These include nationalist
and separatist ideologies, those inspired by Al Qaida, violent
left-wing, anarchist, and right-wing ideologies.
Secondly,
terrorist and violent extremist activities in the EU are not the exclusive
domain of centralised and hierarchical organisations. The threat has
progressively evolved to include smaller EU-based groups, cells, and lone
actors operating in a more unconstrained and unpredictable way. They plan attacks
with limited or no direction from an organisation, making prevention even more
difficult. 
Many terrorists
planning attacks on European soil are themselves Europeans. Such attacks cause more
than loss of life and economic damage; they can sow the seeds of division between
communities in Europe, giving rise to increasingly reactionary and extremist
views in other parts of society. This contributes to a breeding ground for
extremism, perpetuating a vicious circle of radicalisation, aggression, and
violent responses.
Europe is
also directly affected by terrorist activity around the world. Europeans can be
victims of attacks, as the recent atrocities in Nairobi made clear. But they
can also be the perpetrators of these attacks. Often set on the path to radicalisation
in Europe by extremist propaganda or by recruiters, Europeans travel abroad to
train and to fight in combat zones, becoming yet more radicalised in the
process.
Armed
with newly acquired combat skills, many of these European ‘foreign fighters’
could pose a threat to our security on their return from a conflict zone. In the
longer term they could act as catalysts for terrorism. The phenomenon of
foreign fighters is not a new one, but as fighting in Syria continues, the number of extremists travelling to take part in the conflict is rising.
And as the number of European foreign fighters rises, so does the threat to our
security.
Terrorist
groups and extremists are capitalising on advances in technology to find new
ways of engaging with disaffected youth, taking advantage of social networking
sites, online video channels and radical chat rooms. They are spreading their
propaganda more widely, more rapidly, and more effectively. 
Traditional
law enforcement techniques are insufficient to deal with the evolving trends in
radicalisation, and so a broader approach is required to prevent and counter
radicalisation. This broader
approach responding to trends in radicalisation must engage the whole of
society.
This
Communication addresses radicalisation in all of its forms and identifies areas
encompassing a broad spectrum of measures to prevent and counter radicalisation
to terrorism and violent extremism.
1.2 
General
approach and aim
Member
States are responsible for designing and implementing measures aimed at preventing
and countering radicalisation, and the core actions are, and should remain, at
national and local levels. Some Member States have done a lot of work in this
area, and they can share their experience with other interested Member States. 
With
the growing concern about online radicalisation and the noticeable increase in
openly extremist groups in Europe, more and more Member States are facing
threats from radicalisation. Throughout the EU, the risk of radicalisation leading
to extremist violence is growing, and Member States would benefit from
increasing their efforts to effectively respond to these challenges.
Radicalisation
crosses national boundaries in many ways. For example, the use of chat rooms, social
media, and other online tools often has an international dimension. The type of
threats Member States face are often similar, so it can be effective to take action
at the EU level.
The
European Commission is already supporting Member States in their efforts to prevent
and counter violent extremism. In 2011, the Commission established the
Radicalisation Awareness Network (RAN), which brings together more than 700 experts
and practitioners from across Europe. The RAN pools expertise and facilitates the
exchange of ideas on topics ranging from the empowerment of local actors
through to organising international conferences, bringing together expertise at
all levels. 
This
Communication sets out how the European Commission, in collaboration with the High
Representative of the Union for Foreign Affairs and Security Policy (High
Representative) and with the support of the EU Counter-terrorism Coordinator
(CTC), can support Member States’ efforts to prevent radicalisation. With it the
Commission responds to the Council conclusions of June 2013, and
contributes to the broader exercise of updating the EU Strategy for Combating
Radicalisation and Recruitment to Terrorism. The following chapter outlines ten
areas where Member States and the EU could take more action to prevent
radicalisation at home and abroad.
The
actions presented in this Communication reflect the EU’s commitment to ensure
security and respect the fundamental rights and freedoms of EU citizens, as
enshrined in the EU Charter on Fundamental Rights, including freedom of
expression and information, assembly and association, and respect for
linguistic, cultural and religious diversity.
2.                 
Preventing Radicalisation
The
Commission, with the support of the High Representative and the CTC, and with
significant input from the RAN, has identified ten areas which Member States and the EU could consider as part of their efforts to tackle radicalisation
at home and abroad. This section contains brief explanations of how these ideas
could add value to Member States’ efforts to prevent radicalisation, and
outlines in each case how the Commission could support interested Member
States.
The RAN
has compiled a collection of approaches and best practices from within the EU
which the Commission is posting online to accompany this Communication. This collection
contains a broad range of practices further addressing the actions proposed in
this Communication.[1] 
The
actions outlined in the following sections are intended to be implemented using
the resources of existing programmes under the 2014-2020 Multi Annual Financial
Framework. They will be financed within the planned budget and in line with the
programmes' objectives. Should extra human resources be needed, existing staff
will be redeployed. Any task assigned to a decentralised agency will fall into the
current mandate of that agency and will be accommodated within its resources
for the period 2014-2020. The proposed initiatives will not entail any
additional costs to the EU budget.
2.1 
Member
States would benefit from developing national strategies to prevent
radicalisation
Although
terrorism has not affected all Member States directly, the threat is persistent
and terrorist attacks are unpredictable. Terrorism can strike anywhere at any time.
It is therefore crucial that we work together to do what we can to pre-empt
this threat.
Several
Member States have already implemented measures to prevent radicalisation, both
internally and externally. But comprehensive approaches under the strand of the
EU Counter-Terrorism Strategy aimed at addressing radicalisation and
recruitment are not widely used. Some Member States have such approaches, but
others do not. The strategies that are in place are based on horizontal and
vertical cooperation between stakeholders from the local to the international
level. Effective prevention means involving non-governmental organisations,
front line workers, security services and experts in the field. 
These
strategies require building trust within and between the communities, promoting
a better understanding of each other’s sensitivities and problems, engaging different
sections of society, and much more. Bringing all these different aspects
together diminishes the risk of radicalisation, and results in a greater chance
of stopping processes leading towards extremism and violence.
As
identified by the RAN, a prerequisite for effective prevention is that more Member
States put in place strategies to prevent violent extremism and terrorism both
within and outside the EU, based on their own threat analyses and
specifications. National strategies could link to the revised EU strategy and could
consider cooperation between Member States and other relevant actors, in order
to identify innovative ways of preventing and countering radicalisation and
violent extremism.
The
Commission, in collaboration with the High Representative and with the support
of the CTC, could also support the Member States in developing and implementing
their strategies, encourage the development of new projects, and facilitate
cooperation within the EU and beyond.
2.2 
Consolidate
expertise dedicated to preventing radicalisation
There
is a large body of expertise and best practice within the EU and beyond.
Policymakers and other stakeholders in Member States should have access to this
knowledge base and actively draw on it. Setting up the RAN was a step in that
direction; the structured dialogues that it fostered should be continued and
the repository of best practices that was compiled as a result should be
developed further. The EU should continue to help deepen cooperation between
policymakers, academia, private partners, and international forums.
To
achieve this, the Commission proposes to strengthen the role of the
RAN-secretariat and make it more of a knowledge hub by 2015, concentrating
expertise dedicated to preventing and countering radicalisation to terrorism
and violent extremism. In addition to its logistical role, the main tasks would
be to:
-         
Primarily
respond to requests for support from the Member States and the Commission in
their efforts to implement the proposals on preventing radicalisation;
-         
Connect
expertise in the field of preventing radicalisation, including drawing together
and disseminating best practice, and actively helping to shape the research
agenda;
-         
Serve
as a coordination hub for prevention initiatives inside and outside the EU.
The
RAN-secretariat will be run on a time limited basis following a tender. 
2.3 
Better
align the work of the Radicalisation Awareness Network with the needs of Member
States
The RAN
has had success in developing tools for addressing the challenges of
radicalisation. The online repository of best practices is a good example of
this work. Another example is the e-learning facility which allows for the
remote exchange of information and ideas amongst members of the network. The
RAN has also started to address specific phenomena in dedicated workshops and
projects. It has recently completed work on engagement with foreign fighters,
focusing on prevention, outreach, rehabilitation and reintegration. This is an
increasingly relevant subject as the conflict in Syria shows no sign of
abating. 
In
January 2013 the Commission held a high-level conference at which the RAN experts
met with policymakers from Member States to draft recommendations for countering
violent extremism. This was the first step in bridging the gap between the RAN
and Member State policymakers, and the Commission will continue to work on
closing this gap. 
Based
on the experience drawn from the RAN, the Commission will:
-         
Organise
a second high-level conference in mid-2014;
-         
Instruct
the RAN to focus on supporting Member States in implementing the measures suggested
in this Communication;
-         
Welcome
Member States’ initiatives to create national platforms – based on the RAN's model
wherever appropriate – aimed at providing more detailed guidance to national
and local policymakers and non-statutory stakeholders;
-         
Support
a conference on foreign fighters in Syria due to take place in early 2014 and
led by the RAN. This conference will bring together representatives of all
relevant sectors (law enforcement, healthcare, etc.) from the cities in the EU
where foreign fighters are causing the most concern. Local practitioners and
national experts will share practices and exchange ideas on preventing potential
fighters from going to Syria and engaging with foreign fighters after they
return.
2.4 
 Train
practitioners to prevent radicalisation
Based on the experience from the RAN, local actors need to be properly
equipped to recognise radicalised behaviour. This is especially true for those who
are in direct contact with individuals at risk of radicalisation. These front line
workers include social workers, educators, healthcare workers, police, prison staff,
and probation staff. Although these professionals are not all security
personnel, their training and awareness of the needs of individuals at risk
means that they are often the best placed to recognise those individuals in the
process of being radicalised. But front line workers do not always have a good
understanding of the process of radicalisation or know how to respond to it.
Training is therefore needed to help them to recognise and interpret signs of
radicalisation, and to help them judge whether an intervention is appropriate
or not. 
Throughout Europe, courses and training have already been developed
to raise awareness and understanding among front line workers working with
individuals or groups at risk. But as the threat continues to evolve, it is becoming
clear that a more comprehensive approach in and amongst sectors is needed. Such
an approach should build on existing training and incorporate the latest
thinking. Some Member States have set up training programmes for a variety of
sectors, but others limit their training programmes to the more traditional target
groups, such as law enforcement personnel and prison staff. Recent trends in
radicalisation require training modules to be expanded to other sectors, such
as social services, healthcare, and education.
The Commission will:
-         
With input from the Member States, task the RAN
with setting up a European programme to ‘train the trainers’, offering both
sector-specific and cross-sectoral training;
-         
Where appropriate, task the RAN with conducting
the training courses it develops;
-         
With support from the RAN, work with the
European Police College (CEPOL) to develop a training
module for law enforcement professionals on how to recognise and prevent the
process of radicalisation.
2.5 
Member
States would benefit from developing 'exit strategies' to help individuals
leave violent extremism
Even someone
who has been radicalised to the point of violent extremism or terrorism can renounce
violence and its underlying ideology. 'Exit strategies' can help radicals disengage
(renounce violence without giving up the ideology underpinning it) and de-radicalise
(renounce both violence and the underlying ideology). These strategies range in
ambition, from dissuading extremists from violence to reintegrating the former
radical into society. Every radical is an individual with his or her own motivations
and rationale, so exit programmes must be tailored to individual needs.
Exit
strategies generally rely on individual mentoring consisting of psychological
support and counselling. This is combined with social and economic support to facilitate
reintegration. Mentors need to possess the specific professional competences,
be adequately trained, and be supported by other practitioners.
Exit strategies
should be embedded in the wider societal context. Such strategies should engage
with families and communities, which are often best placed to contribute to
de-radicalisation, by encouraging discussion of difficult issues, enlisting help
from the wider community, and staying alert for worrying changes in behaviour.
Experiences
from the RAN have demonstrated that national and local authorities could
benefit from supporting greater engagement with families, helping them to
understand and challenge the radicalisation of their relatives, or, where
possible, prevent it. Counselling, hotlines, and local support networks can provide
crucial support in difficult circumstances. 
With
such an approach, exit strategies must be designed and implemented in
collaboration with a broad range of state and non-state stakeholders. This is
known as the multi-agency approach. The efforts to promote exit strategies may
draw on cross sector collaboration between relevant authorities such as police,
prison and probation services, social service providers, schools, etc. They should
take a long-term perspective, taking into account underlying socio-economic
factors, and have dedicated resources at their disposal. 
To help
the Member States develop such exit programmes, the Commission, in close
cooperation with the Member States, will task the RAN with gathering knowledge
and expertise to support them, at their own request, in setting up effective
de-radicalisation and disengagement programmes. Such support would include:
-         
Organising
EU-wide workshops with Member States to explore different de-radicalisation and
disengagement programmes and to discuss referral mechanisms for families,
communities, and front line workers;
-         
Setting
up training for local practitioners who help individuals disengage and de-radicalise;
-         
Working,
at each Member State’s request, with its central administration and local authorities
to support the setting up of national de-radicalisation or disengagement programmes.
2.6 
Cooperate
more closely with civil society and the private sector to address challenges
faced online
Modern communications technology offers
unprecedented access to information. Radicalisers are taking advantage of this
by using online tools to spread their hateful messages more effectively than
ever. Moreover, today’s internet users can access extremist material in the
privacy of their own homes. Furthermore, radicalised individuals can
communicate easily with people at risk of radicalisation. Magazines, such as Al
Qaida in the Arabian Peninsula's Inspire, which is published online, show
a skewed picture of life as a terrorist. Promotional videos for groups like
Al-Shabab are easy to find. And even graphic videos depicting acts of terrorism
can be found on popular mainstream web platforms.
More can be done to prevent this
dangerous propaganda from proliferating and reaching its target audience, and
to respond to it. Member States and service providers do cooperate on an ad hoc
basis to remove illegal material, but since many extremist websites are hosted
outside the EU this is a difficult task. The Audiovisual Media Services
Directive already obliges authorities in every EU country to ensure that audiovisual
services do not contain any incitement to hatred based on race, sex, religion
or nationality. All actions taken under this Directive must respect fundamental
rights, including the right to free speech. 
Countering extremist propaganda means
more than just prohibiting or removing illegal content. A positive and carefully
focused message needs to be spread, and it needs to be spread widely enough to offer
vulnerable internet users an easily accessible alternative to terrorist
propaganda.
The Commission is willing to offer support
to Member States, third countries, the private sector, civil society, and
individuals in their efforts to create positive online counter-messaging and to
keep illegal content from public access. To achieve this, the Commission will
take the following actions:
-         
Set
up a forum with key players in the industry to discuss the magnitude of the
problem, the steps interested parties are taking, and opportunities for closer cooperation.
The participants will discuss a broad range of issues, including ways to make
it easier for the public to flag offensive or potentially illegal material, to promote
the creation of online counter-narratives, and to make available easily
accessible alternative messages that stimulate critical thinking. This forum
will have regular high-level and technical meetings, and will report back on
its activities;  
-         
Continue
to encourage community groups, citizens, victims and former extremists to
develop counter-narratives. As part of this effort the Commission will task the
RAN with developing innovative online counter-narratives featuring former
terrorists and victims of terrorism. The aim is to produce a range of online videos
and messages targeting people at risk. The reach and impact of these videos
will be measured, and a report should be produced for the Commission and the Member States on effective online counter-narratives.
2.7 
Empower
victims to help prevent radicalisation
Victims
of extremist violence suffer great harm and need to be supported in their
recovery. Given the right kind of backing, they may choose to speak out against
violent extremism and terrorism. Precisely because their suffering is so
personal and direct, they are highly credible witnesses, and their impact is greater
than any statutory organisation could hope to achieve. They can bring home the
real consequences of terrorism and violent extremism and form a more effective
counterweight to the one-sided propaganda of extremists.
The
Commission is committed to helping the victims of terrorism and extremist
violence, and will:
-         
Continue
to strengthen victims’ rights and to support groups and networks, both within
the EU and beyond; 
-         
Fund
projects that enable victims to tell their stories, both as part of their personal
recovery and as part of the effort to create new counter-narratives;
-         
Increase
public awareness of the situation of victims by commemorating Victims’ Day on 11 March
each year, and by setting up exhibitions dedicated to victims’ stories.
2.8 
More
could be done to encourage young people to think critically about
extremist messages 
People
are at their most impressionable in adolescence and early adulthood, and many
of the values and attitudes they develop at this stage stay with them for much
of their lives. Not surprisingly, therefore, those most at risk from radical
propaganda are adolescents and young adults. In the past, access to extreme
material could be better controlled by parents, teachers, and community
leaders. However, with new technologies and the spread of this material, this
is no longer the case. 
Young
people often use the internet alone, when no one else is around to criticise
harmful material. This increases the danger that the message takes root and drives
young people to violence. But while young people may be exposed to harmful material
online, they may also find positive counter-narratives. Steps need to be taken to
encourage young people not to remain passive but to think critically, to challenge
extremist views and pick them apart. The RAN has identified intercultural
dialogue and personal exchanges between young people as a key method of
building resilience to extremist propaganda. Civic engagement and participation
in communities also helps build up positive attitudes.
The RAN
has recognised that education, training, and youth work sectors are often best
placed to help young people develop their critical thinking skills. To maximise
the impact of counter-radicalisation efforts, Member States’ policymakers in
the areas of education, non-formal youth activities, and security could
cooperate more closely to develop more effective programmes.
To
achieve this, the Commission will take the following actions:
-         
Support
Member States by identifying and distributing programmes designed to foster critical
thinking skills. Exposing flaws in extremist and terrorist propaganda will
encourage young people to challenge the views this propaganda puts forward. The
Commission’s activity on media literacy within the Creative Europe Programme
offers Member States and experts ways to  discuss and develop effective tools
in this area;
-         
Use
Erasmus+, the EU funding programme for cooperation in education, training,
youth, and sport to offer substantial opportunities in 2014-2020 for mobility
of students and teachers and to support partnerships between stakeholders. This
will increase skill levels, enhance the quality of teaching, modernise
education and training systems and  ultimately help youths in developing their resilience
to extremist views;
-         
Support
local and community groups working with former violent extremists and with victims
of extremist violence to show young people that there is another side to the
story. The Commission will also task the RAN with setting up a pool of
practitioners, victims of terrorism, and former terrorists for the benefit of schools
interested in addressing these issues in more depth.
2.9 
Further
research into trends in radicalisation and evaluation of existing practices should
be carried out
We
cannot develop a well-targeted response to emerging challenges of violent
extremism unless we understand what drives the process. Research carried out at
an EU level can add value when its aim is to map and analyse broad trends in
radicalisation. The Commission is currently funding research into the
motivations of lone actors and why they turn to violence, the shift from
moderation to violent extremism, and the creation of a toolkit for evaluating the
impact of programmes tackling radicalisation. More research is needed to
understand how and why people radicalise or de-radicalise. This research should
address the roles played by ideology, new internet-based recruitment
techniques, and role models. 
To
support further research the Commission will:
-         
Use
the Horizon 2020 programme to fund research into Secure Societies, a collaborative
effort which includes research into radicalisation and recruitment;
-         
Use
the Disaster Resilience and Fight against Crime and Terrorism funding streams (future
Internal Security Fund) to fund further research into ways to address radicalisation;
-         
Work
with national policy makers, the RAN, and researchers, to ensure that research
remains targeted.
2.10 
Work
more closely with partner countries to prevent and counter radicalisation both inside
and outside the EU
In
parallel to actions taken internally, the EU and its Member States should promote initiatives in third countries, with particular emphasis on fragile or
conflict-affected countries, countries in transition or those characterized by
weak governance. Vulnerability to radicalisation does not stop at the EU's
borders; it is well known that the process of radicalisation happens outside
the Union as well, in terrorist training camps and conflict areas. Therefore,
in parallel to these internal measures, the EU and its Member States should encourage partner countries to take measures of their own.
As there is a clear connection between internal and external
dimensions, the Commission will work closely with the High Representative and the
CTC to ensure that internal and external aspects of the European response on
Preventing Radicalisation are properly aligned. These aspects need to address
the right priorities and be well informed by risk analyses undertaken or other
conflict assessment tools used in third countries. At the same time, special
attention should be given to the transnational and transcontinental dimensions
of programmes and projects addressing radicalisation.
To this end, the Commission and the High Representative will take
the following actions:
-         
Increase external capacity-building efforts
focusing on preventing and countering radicalisation and make sure this work is
integrated into the action plans and political dialogues between the EU and its
partner countries. External work carried out to prevent radicalisation has become
an increasingly important component of the EU’s counter-terrorism cooperation,
and further investment in this area is planned, especially under the Instrument
for Stability. The EU will support projects on Countering Violent Extremism (CVE)
in the Horn of Africa and in South Asia. Additional funding for these
activities in West Africa is planned. The EU also aims to launch projects through
the International Centre of Excellence for Countering Violent Extremism in Abu Dhabi (the Hedaya Centre) to develop, among other things, internal training programmes
to share sector-specific skills with front line practitioners in partner countries;
-         
Emphasize the links between education and
security programmes financed through external assistance instruments so that children
and young people in third countries are encouraged to develop a critical
thinking from early stages of their education and thus preventing them from
becoming victims of radicalisation, extremist violence or terrorism;
-         
Support the media as a key actor for enhancing
the dialogue with the civil society organisations, local authorities, private
sector actors, academics, regional or international organisations in third
countries in preventing and countering radicalisation; 
-         
Help shape the Global Fund for Community
Engagement and Resilience recently launched by the Global Counterterrorism
Forum. This Fund supports grass-roots counter-radicalisation initiatives and
operates partly with private resources;
-         
Incorporate strategies to prevent radicalisation
and violent extremism into traditional development cooperation tools and
instruments, particularly in fragile states prone to violent extremism;
-         
Establish external networks to promote
preventive strategies between EU delegations and EU Member States’ embassies in
priority regions, and ensure that delegations can identify opportunities for supporting
civil society engagement and CVE projects. The Commission and the High
Representative will also support EU delegations to survey attitudes towards the
EU and assess how the EU's messages are being received in priority countries.
3.      The Way Forward
This Communication
has identified actions that Member States and the EU could take to prevent and counter
radicalisation more effectively. The Commission, in collaboration with the High
Representative and with the support of the Counter-terrorism Coordinator, offers
the Member States tools and support for their work.
This
Communication is also intended to feed in the views of the Commission to the
revision of the EU Strategy to Combat Radicalisation and Recruitment to Terrorism,
to be initiated in 2014. 
The
Commission, working with the High Representative and the Counter-terrorism
Coordinator, will present a report on the implementation of the different
actions contained in this Communication towards the end of 2015.
***
[1] http://ec.europa.eu/dgs/home-affairs/what-we-do/networks/radicalisation_awareness_network/index_en.htm.