Handling Ethical Problems in Counterterrorism an Inventory of Methods to Support Ethical Decisionmaking
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Handling ethical problems in counterterrorism An inventory of methods to support ethical decisionmaking Anaïs Reding, Anke Van Gorp, Kate Robertson, Agnieszska Walczak, Chris Giacomantonio, Stijn Hoorens EUROPE Handling ethical problems in counterterrorism An inventory of methods to support ethical decisionmaking Anaïs Reding, Anke Van Gorp, Kate Robertson, Agnieszka Walczak, Chris Giacomantonio, Stijn Hoorens Prepared for the Research and Documentation Centre (Wetenschappelijk Onderzoek- en Documentatiecentrum, WODC) on behalf of the National Coordinator for Counterterrorism and Security at the Netherlands Ministry of Security and Justice (Ministerie van Veiligheid en Justitie) The research described in this document was prepared for the Research and Documentation Centre (Wetenschappelijk Onderzoek- en Documentatiecentrum, WODC) on behalf of the National Coordinator for Counterterrorism and Security at the Netherlands Ministry of Security and Justice (Ministerie van Veiligheid en Justitie). RAND Europe is an independent, not-for-profit policy research organisation that aims to improve policy and decisionmaking for the public interest though research and analysis. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R® is a registered trademark © Copyright 2014 WODC All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or infor- mation storage and retrieval) without permission in writing from the copyright holder. RAND OFFICES SANTA MONICA, CA • WASHINGTON, DC PITTSBURGH, PA • NEW ORLEANS, LA • JACKSON, MS • BOSTON, MA DOHA, QA • CAMBRIDGE, UK • BRUSSELS, BE www.rand.org • www.rand.org/randeurope Preface This document presents the findings of a study into methods that can help counterterrorism professionals make decisions about ethical problems. The study was commissioned by the Research and Documentation Centre (Wetenschappelijk Onderzoek- en Documentatiecentrum, WODC) of the Dutch Ministry of Security and Justice (Ministerie van Veiligheid en Justitie), on behalf of the National Coordinator for Counterterrorism and Security (Nationaal Coördinator Terrorismebestrijding en Veiligheid, NCTV). The research team at RAND Europe was complemented by applied ethics expert Anke van Gorp from the Research Centre for Social Innovation (Kenniscentrum Sociale Innovatie) at Hogeschool Utrecht. The study provides an inventory of methods to support ethical decision-making in counterterrorism, drawing on the experience of other public sectors – healthcare, social work, policing and intelligence – and multiple countries, primarily the Netherlands and the United Kingdom. The report introduces the field of applied ethics; identifies key characteristics of ethical decision-making in counterterrorism; and describes methods that can help counterterrorism professionals make decisions in these situations. Finally, it explores how methods used in other sectors may be applied to ethical decision-making in counterterrorism. It also describes the level of effectiveness that may be expected from the various methods. The report is based on a structured literature search and interviews with professionals and academics with expertise in applied ethics. This report will be of interest to counterterrorism professionals who are responsible for strengthening ethical decision-making in their organisation. It may provide some insights for professionals who seek new methods to help them make ethical decisions. The findings may also be relevant for other professionals, if complemented by a review of decision- making characteristics in their sector of specialism. RAND Europe is an independent not-for-profit policy research organisation that aims to improve policy and decision-making in the public interest through research and analysis. This report has been peer reviewed in accordance with RAND’s quality assurance standards. For more information about RAND Europe or this document, please contact Stijn Hoorens (hoorens@rand.org): RAND Europe RAND Europe Rue de la Loi 82 Westbrook Centre, Milton Road Brussels 1040 Cambridge CB4 1YG Belgium United Kingdom Tel. +32 2669 2400 Tel. +44 1223 353 329 iii Contents Preface ........................................................................................................................ iii Table of figures and tables ..........................................................................................vii Nederlandse samenvatting ........................................................................................... ix Executive summary ..................................................................................................... xv Abbreviations ............................................................................................................. xix Acknowledgements .................................................................................................... xxi CHAPTER 1 Introduction ........................................................................................... 1 1.1 Ethical decision-making is being developed in counterterrorism ........................ 1 1.2 This report provides an inventory of methods to support ethical decision- making in counterterrorism ............................................................................... 2 1.3 The study mainly draws on experts’ knowledge of ethical decision-making ........ 2 1.4 Purpose of this report ........................................................................................ 3 1.5 Overview of the structure and content of this report .......................................... 3 CHAPTER 2 Introduction to applied ethics................................................................. 5 2.1 Introduction to ethics ........................................................................................ 5 2.2 Applying ethics to professional settings .............................................................. 7 2.3 What is an ethical problem? ............................................................................... 9 CHAPTER 3 Key ethical problems in counterterrorism ............................................. 11 3.1 Counterterrorism is defined by the threat it opposes and its international scope ............................................................................................................... 11 3.2 Many ethical problems in counterterrorism are common to other fields, but they combine a particular set of challenges ................................................ 11 3.3 We distinguish four types of ethical problem faced by counterterrorism professionals .................................................................................................... 13 3.4 Summary ......................................................................................................... 19 CHAPTER 4 Methods to support ethical decision-making ........................................ 21 4.1 There are six types of method that can support ethical decision-making .......... 21 4.2 Mitigation methods ......................................................................................... 22 4.3 Professional development methods .................................................................. 23 4.4 Guidance methods .......................................................................................... 27 4.5 Leadership ....................................................................................................... 30 v Handling ethical problems in counterterrorism RAND Europe 4.6 Advisory methods ............................................................................................ 32 4.7 Oversight mechanisms ..................................................................................... 34 4.8 Summary ........................................................................................................