Initiatives to Prevent/Counter Violent Extremism in South East Europe a Survey of Regional Issues, Initiatives and Opportunities
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Initiatives to Prevent/Counter Violent Extremism in South East Europe A Survey of Regional Issues, Initiatives and Opportunities ISSN number, Year xx, Number xx Good. Better. Regional. Publisher: Regional Cooperation Council Trg Bosne i Hercegovine 1/V, 71000 Sarajevo Bosnia and Herzegovina Tel: +387 33 561 700; Fax: +387 33 561 701 E-mail: [email protected] Website: www.rcc.int Author: Dr. Valery Perry Editor: Stefana Greavu, RCC This document is prepared and developed in cooperation between Regional Cooperation Council and Dr. Valery Perry. Please note that data collection for this report ended on June 16, 2016. This survey has been funded by the Regional Cooperation Council. The responsibility for the content, the views, interpretations and conditions expressed herein rests solely with the author and can in no way be taken to reflect the views of the Regional Cooperation Council or of its participants, partners, donors or of the European Union. ©RCC2016 All rights reserved. The content of this publication may be used for non- commercial purposes, with the appropriate credit attributed to the RCC. Initiatives to Prevent/Counter Violent Extremism in South East Europe A Survey of Regional Issues, Initiatives and Opportunities Sarajevo, July 2016 INITIATIVES TO PREVENT/COUNTER VIOLENT EXTREMISM IN SOUTH EAST EUROPE Executive Summary and Key Recommendations Turkey). The aim of the research was to identify Introduction gaps and unnecessary overlap, and contains conclusions and recommendations. The survey was conducted through interviews with over The topic of violent extremism has increasingly hundred experts and stakeholders to understand become a part of policy discussions among their diagnosis of the challenge, to understand domestic officials, international actors, academic ongoing activities in PVE/CVE and to seek their researchers and civic activists in South East Europe recommendations for more effective domestic and (SEE) over the past several years. The prominence regional initiatives. This report summarizes this of this issue has been driven to a large extent by research exercise and is aimed at being a tool for the concerns of ISIL/Daesh-inspired terror,1 the the governments, international organizations and threat of foreign terrorist fighters (FTFs) gaining independent actors to better understand trends, battlefield experience in Syria and Iraq and initiatives and challenges across the region. then returning to their home countries, and the substantial media attention which surrounds acts of high-profile terrorist activities. The role of social media and global outreach in overcoming borders has illustrated the negative side of increased Key Findings global communication, mobility and connectivity, and demonstrated new security threats. There The following key findings are, among others, is a growing recognition that traditional counter- explored in the report: terrorism (CT) measures may not be enough to successfully suppress violent manifestations of There has been substantial progress in the re- extremism and terror. Measures to prevent violent gion in developing specific CT and CVE strate- extremism (PVE) and counter violent extremism gies that include attention to prevention. These (CVE) are required to truly reduce risk factors. documents provide governments with a guiding framework for future work. The Regional Cooperation Council (RCC) commissioned this study to better understand The level of consultation in developing these the situation regarding violent extremism, and strategies has been generally low. There are related planned and on-going governmental and different views on what constitutes consulta- non-governmental activities in preventing and tion. However, if there is a perception that a countering radicalization and violent extremism strategy or action has not involved sufficient leading to terrorism in SEE (Albania, Bosnia and meaningful consultation, there is less likelihood Herzegovina, Kosovo*2, Montenegro, Serbia, of public trust and engagement in implementa- The Former Yugoslav Republic of Macedonia and tion. 1 Islamic State of Iraq and Syria (ISIS), Islamic State of Violent extremism is primarily viewed through Iraq and the Levant (ISIL), Islamic State (IS) and Daesh were all the prism the threat of the ISIL/Daesh. Other used by various individuals consulted to refer to this phenom- forms of extremism, such as domestic right-wing enon. The term ISIL/Daesh will be used in this report as per nomenclature agreed in the Southeast European Cooperation extremism, are noted as a secondary concern, Process Ministerial Meeting, Joint Statement on Terrorism, un- if acknowledged at all. An exception is Turkey, less certain respondents specifically used another term. (The which is facing a unique combination of indige- statement is available at http://www.punetejashtme.gov.al/ nous and external threats. files/news_files/SEECP_-Joint_Statement_on_Terrorism.pdf). The use of this term is not intended to confirm or reify any links between Islam as a faith and either violence or extremism, but There is a tendency among interlocutors (partic- is used in this instance for simplicity. ularly among officials) to state that what is most 2 This designation is without prejudice to positions on needed to prevent/counter violent extremism status, and is in line with UNSCR 1244/1999 and the ICJ Opinion is economic development and infrastructure on the Kosovo* declaration of independence. 4 A SURVEY OF REGIONAL ISSUES, INITIATIVES AND OPPORTUNITIES investment. However, when discussing further, accountability are viewed as the least resilient there is recognition that there is an ideological/ to these threats. worldview factor and deeper inclusion/alien- ation issues that must be addressed as well. CVE is broadly viewed as consisting of a com- bination of repressive and preventive measures Independent experts noted that social exclu- There is consistently greater confidence in sion, marginalization and a search for meaning/ the ability to implement repressive measures belonging are contributing factors to radicaliza- including policing, intelligence, surveillance, tion. There are few political trends in support of arrest and incarceration. Community policing greater inclusion of citizens in social and public as a concept is minimally understood, and in life, or to cultivate multi-layered and inclusive practice remains weak throughout the region identities – in spite of the need for such policies. – particularly in communities populated by non-majority or marginalized groups. The threat of extremism and latent or opera- tional violent extremism is viewed as a threat, There is less confidence in the ability to com- though the numbers of adherents of violent ex- mit to the preventive strategies needed, in- tremism, including but not limited to foreign cluding more robust psycho-social support terrorist fighters (FTFs)/returning FTFs, are not systems, stronger education and the cultiva- in themselves inordinately high when compared tion of more resilient communities. Respon- with Western Europe. dents note that such long-term projects are All stakeholders consulted noted a drop in the not always attractive to donors seeking short- number of individuals from Western Balkans term deliverables and “successes,” and are going to fight in Syria/Iraq since 2015, a de- approached hesitantly by domestic officials crease explained by a combination of fear of wary of the political perils of long-term policy legal consequences and greater awareness of commitments. the risks through exposure to ISIL/Daesh pro- Non-official interlocutors were most likely to paganda and increased domestic media cov- note that the lack of truly independent insti- erage. However, nearly all respondents were tutions in each location contributes to inef- clear in confirming that this drop does not fective response to the challenge of radical- mean that radicalization has stopped. ization, and, in particular, to prevention. Relative absence of significant acts of terror- The past two years have seen an increase in the ism and violent extremism in the areas stud- amount of research available on this topic. How- ied (Turkey as a notable exception) has made ever, much remains unknown and the need for it possible for many societies to ignore the evidence to diagnose the problems and demon- problem. However, extremism, with the po- strate effective prevention techniques is sorely tential to turn violent domestically or abroad, needed. is viewed as a risk. The refugee crisis was not noted by interlocutors as a driver of extremism in itself, but viewed as a tool that might be used by some officials with Key Recommendations other agendas, and as a wedge issue that could promote growing populism and xenophobia. With the exception of Turkey, few saw refugee The following are key recommendations with flows as a primary route for extremists to en- regional relevance; specific recommendations are ter the region; there are easier ways. However, included for each of the seven cases studied: several individuals noted the overlap between refugee transit routes and the broader Balkan Officials and independent actors alike note that route that facilitates illicit trafficking in drugs, they need more information on what is happen- arms and people. ing in each location and in the region, in terms of diagnostic analysis and current or planned There is a broad worry among non-official re- PVE/CVE activities. This report should be shared spondents that the threat and fear of VE might