Policy Note #1:2016

RADICALISATION AND TERRORIST RECRUITMENT AMONG ’S YOUTH Radicalisation and terrorist recruitment among Kenya’s youth by Sirkku Hellsten Policy Note No 1:2016 © The Author and the Nordic Africa Institute February 2016

Cover Photo: The Kibera slum in , Kenya. Photo by Ninara. Creative Commons 3.0 License ISSN 1654-6695 ISBN 978-91-7106-784-5 RADICALIZATION AND TERRORIST RECRUITMENT AMONG KENYA’S YOUTH

With little chance of getting any education or jobs, young slum dwellers in Kenya are easy prey for terrorist recruiters from al-Shabaab and ISIS. Politicians must therefore address the social development of poor neighbourhoods and specifically target the youth. Equally important in order to prevent further radicalisation, this policy note argues, is the fight against corruption. by Sirkku Hellsten

he radicalisation of youths and their the West. However, now Al-Shabaab has stated that recruitment for violent and illegal following Kenyan military involvement in activities is not new to Kenya. Criminal October 2011, it will target all those who voted for the gangs, ethnic sects and local militias government that sent in the troops. Moreover, some have been undertaking such recruitment recent attacks were planned and executed by young for years. Politicians have used the youth, particu- Kenyan nationals. Thus, government can no longer Tlarly during elections, to buy votes; intimidate the claim that terrorist attacks in Kenya are unrelated to opposition; create disturbances, fear, and instability; the country’s policies, foreign and domestic. and even to mount violent attacks on opponents and their supporters. In the disputed 2007 elections, such Various reasons for joining practices led to widespread violence across the country. The major camps in Kenya, such as Dadaab or However, in recent years, youth radicalisation has beco- , have traditionally been recruiting grounds for me even more threatening on account of the increased terrorists. Now recruitment is much more widespread, terrorist activities in the region. due to the increasing criminal and terrorist activities in the region. Civil society organisations, among others, No more downplaying the threat are concerned that youths are being openly targeted by in Kenya has resulted in not only the loss of extremist organisations and are very susceptible to their lives, personal suffering and pain, but also in growing offers. Regardless of their religious affiliation or ethnic instability and a heightened sense of insecurity. The background, boys and young men living in the slums latter has harmed the country’s economy, particular- are often approached by al-Shabaab or ISIS recruiters. ly the tourism sector, and there is widespread doubt Youngsters with little hope of education and good about the government’s will and ability to deal with jobs are particularly easy prey. Similarly, in the coun- the situation. The country’s biggest and best-known try’s border regions, recruitment is reportedly active. international hotels are now so heavily guarded and However, recruits have also included girls, children protected that entering them feels more like visiting a from wealthy families and university students, as was prison. Security measures have also increased in public the case in the terror incident of 2015. buildings, universities and shopping malls. Newly Radicalisation is a complex phenomenon and studies opened Westgate Mall, which experienced a terror show that the reasons for joining extremist organisa- attack in 2013, has entry checks comparable to those at tions vary between social groups. Some youths living international airports. in poor neighbourhoods are attracted by the promise Earlier, the government downplayed the threat of money and material reward, others believe in the within the country’s borders, and claimed Kenya to be jihadist ideology, some have lost faith in dysfunctional an innocent victim of the (Somali) terrorist war against politics, others look for adventure and for a clear set of

3 Photo: Humanitarian Relief Foundation,Photo: Humanitarian Relief IHH rules and norms to follow, and yet others join because of peer – even family – pressure. The organisations are very adept at targeting these different youth groups with different promises and messages. Terrorist orga- nisations have also been successful in recruiting youths in the West and elsewhere. However, this task is easier in places where , inequality, ethnic and religious tension, political marginalisation and insecurity already prevail.

Kenya: security, corruption and terrorism According to observers familiar with the situation, Dadaab . The major refugee camps in Kenya have nowadays recruitment is open. Sometimes police and traditionally been recruiting grounds for terrorists. Now recruit- ment is much more widespread. security staff involvement in, or connivance at, such ac- tivities is alleged, usually in return for bribes and other ‘benefits.’ Similarly, Kenyan immigration officials at immigration service of corruption, but there have border posts are said to illegally admit foreigners from also been allegations that soldiers are involved in the Somalia, and elsewhere in return for small wide-scale illegal sugar and charcoal business, alleged- fees. The fact that there is a direct link between inse- ly even collaborating with Somali militants and thus curity and corruption has been publicly acknowledged providing Al-Shabaab with revenue. as the greatest obstacle in the fight against terrorism. It Kenya, seen as a key ally in the War on Terror by the has been reported that crooked officials have admitted US and UK, has received international help, especially more than 100,000 foreigners into the country, many after the Westgate attack. As mentioned, security has of them criminals, and some found with highly explo- been beefed up, often inconveniencing the innocent, sive bomb-making material even after passing through but the Kenyan military and police often fail to work several police roadblocks. together effectively, and there have been lapses in the The Kenyan military has accused the police and use of intelligence to prevent attacks. Photo: AU-UN IST PHOTO / STUART PRICE

AMISOM (African Union Mission in Somalia) prepares to advance on a town in Somalia held by the al-Qaeda affiliated group al- Shabaab. The Kenyan military involvement in Somalia began October 2011. Al-Shabaab has stated that they will target all those who voted for the Kenyan government that sent troops to Somalia.

4 Terror attacks in Kenya | From 1998 until today

The wave of terror attacks targeted a bus full of teachers One of the most recent attack on could be said to have started with in County, executing civilians happened in December the twin bombings of the United 28 non-Muslims. In December 2015. It was against a bus on its States Embassies in Nairobi and 2014 the same terror group killed way from Nairobi to Mandera. Dar es Salaam in August 1998. 36 non-Muslim quarry workers In January 2016 there was an After that Kenya has been hit re- near the north Kenyan town of assault on Kenyan Defence Forces gularly by terror acts: September Mandera. In April 2015 the or- (KDF) military base at El Adde, 2013 Al-Shabaab militants struck ganization carried out a massacre in Somalia, causing more than the Westgate shopping mall in at Garissa University College in 60 deaths. It appears that in the Nairobi, killing 67 people; June north-east Kenya, killing 148 recent attacks also ISIS has been 2014 at least 48 people died people, most of them young involved in one way or another. after Islamist militants attacked Christian students. There have There is a ruthless competition on hotels and a police station in been many other terror attacks terror and recruitment between on the coast, near in Kenya during the recent years Al-Shabaab and ISIS. This makes the island resort of . In but all have not reached the the security situation even more November 2014 Al-Shabaab international news headlines. volatile.

Insecurity can hardly be averted when national secu- dangerous return to the days of ‘state terrorism’ when rity institutions are deeply implicated in corruption. security agents were used to get rid of the political There is no end in sight for the trafficking taking place opposition and to intimidate those who challenged in drugs, weapons, animal trophies, ivory and persons, government policies. including terrorists. On the other hand, the more coer- cive the security measures taken against citizens are, the Fuels tension and threatens security more exclusion and extremism spread. In an ethnically divided country like Kenya, where there has been discrimination against Muslims, Arabs From anti-terrorism to state terrorism? and ethnic , issues of ethnicity, religion, access Finding the balance between national security and to power, lack of social justice and protection as well combating terrorism is difficult even in mature de- as violation of human rights easily become entangled mocracies. In countries with less clearly entrenched in a manner that fuels tensions and threatens security. governance systems, it is a serious challenge. In Kenya, At the same time, the failure to build a united nation security agents and human rights organisations such with shared values and goals; competition for power; as the Kenya National Commission of Human Rights impunity and corruption; lack of participation by are at loggerheads over the measures taken to improve marginalised groups; unequal distribution of resour- state security. Critics claim that citizens’ rights and the ces and land add to people’s discontent. This social civil space are under assault and that the government is fragmentation and constant aggressive competition for mistaken in ‘fighting terror with terror.’ Human rights power between ethnic communities is causing people, organisations also accuse the government and security particularly youth, to view ruthless rivalry as a legiti- forces of random arrests, disappearances, torture and mate tool. They are also seeking a clear, alternative set extra-judicial killings of young Muslim men, especial- of normative principles. In this environment, it is easy ly in the northern and coastal parts where the ethnic to turn individuals against their fellow compatriots, as Somali and Muslim population is greatest. the increasingly ‘successful’ recruitment of Kenyans by Security forces, for their part, accuse the human terrorist organisations sadly shows. rights organisations of ‘protecting terror suspects and Attacks by al-Shabaab, especially those which target terrorists’ in the country. For human rights advoca- non-Muslims, have already increased religious tensions tes and civil society organisations this represents a in Kenya. Security initiatives in Muslim- and Somali-

5 Photo: Ninara

If the extremist ideologies are to be starved of new recruits, more support is needed for the organisations working in the slums and infor- mal settlements on education, youth activities, vocational training as well employment. dominated areas such as Eastleigh, Nairobi, and coastal This was the first public admission in Kenya that ISIS areas have led to more prejudice against ethnic Soma- is active in the country. lis and Muslims, whether they be Kenyan citizens or or migrants. The more alienated these groups Youth of all social groups are vulnerable feel in Kenya, the greater the likelihood that some of As long as Kenyan domestic politics remain divisive, their members will sympathise with extremist organisa- corruption prevails and inequality and lack of political tions. The situation has become even more confused as voice continue, the youth of all ethnic groups will be ‘terrorism’ has become a political football, with blame vulnerable and susceptible to believing the promi- for its existence being traded between government and ses made by recruiters. The youth have learned not opposition. Finally, despite the strong security measu- to believe the promises made by politicians to their res taken, the state’s inability to coordinate its security supporters during the elections, and promptly ignored forces and share intelligence among them further ham- thereafter. pers Kenya in its fight against terrorism. Thus, we may only have seen the beginning of terror acts in Kenya, unless the actors find ways to cooperate First ISIS attack in Kenya in order to prevent the threats.

Meanwhile, ISIS has come on the scene. Police Chief Photo: AU/UN IST/Anthony Hunt Boinett told a press conference in December 2015 that al-Shabaab and ISIS are competing to spread the international jihadist agenda and, in the long run, the entry of the well-financed and brutal ISIS into the re- gion could herald more and better-coordinated attacks in Kenya. The most recent incident involving civilians was in December 2015, when a bus en route from Nai- robi to Mandera, northeastern Kenya, was attacked. In this case, the incident made news headlines because it failed: the Muslims on board protected their Christian fellow passengers. After the attack, Boinnet attributed State terrorism plays into the hands of extremists. Anti-terrorist it to al-Shabaab militants who had defected to ISIS. measures must not overrule human and citizens’ rights.

6 Five recommendations to policy-makers

Corruption breeds insecurity Work across political party More serious anti-corruption efforts are boundaries needed across the board. As long as cor- Kenyan politicians have to admit the level ruption remains rampant, there will be no and extent of the threat, and start working 1end to the insecurity in the country and wider region. The 3together across political parties and alliances, instead of international community should focus more seriously on blaming each other and deepening ethnic divisions in the regional anti-corruption efforts and move from rhetoric to country. This practice only discourages political participa- serious action. Training in anti-corruption and good go- tion by ordinary citizens and weakens democracy. While vernance, collaborative efforts, zero-tolerance for corrup- al-Shabaab ‘fights for Somalia’ in order to make it to an tion by the international community and business, and Islamic theocratic state, many Kenyan youths of different strengthening institutional and professional ethics and ethnic backgrounds are joining its ranks. Now there is also the citizens’ oversight role are needed. The focus needs ISIS to offer a more global jihadist agenda. The vulnerabi- to be not just on legislative or institutional structures but lity of the youth to recruitment is a clear sign that people also on comprehensive change to the culture of impunity are discontent with the governance of the country and feel and to the attitudes of the youth, the next generation of powerless to bring about change. leaders. Better opportunities for Equal society is the best the youth prevention Much more attention has to be paid to the There is a need to change the focus from a youth by increasing opportunities for edu- formal, aggressive and militarised ‘war aga- 4cation, employment and political participation. The youth 2inst terror’ to prevention and to enhancing political and need to be able to engage productively in a politics that economic inclusion. Particular attention should be paid to builds unity, is based on common values and holds out increased social justice and inclusion, with equal chan- the real prospect of change by democratic means if the ex- ces for education and employment. Although it is easier tremist ideologies are to be starved of new recruits. Youth said than done, there is an urgent need to build a more leadership exchange programmes should be promoted by unified national political culture and to work across ethnic international partners as well as regionally. Self-evidently divisions on shared interests. Development partners can more support is needed for the organisations working in help by supporting wider participation, the work of civil the slums and informal settlements on education, youth society and the capacity of political parties. This means activities, vocational training as well employment. promotion of a working multiparty democracy that offers people real political alternatives, not just a multiplicity Avoid state terrorism of political parties. Kenyan politics lack content, and the parties any serious political agenda, values and ideals. State terrorism is no better that other Without these alternatives, extremist ideologies will easily terrorism. Anti-terrorist security measures find supporters. More attention should also be paid to the need to be balanced by equal protection of role of religion – and related conflicts ‒ in the region. 5human and citizens’ rights. Too strong security measures by the state simply plays into the hands of extremists by radicalising the youth and targeted populations. FURTHER READING KNCHR 2015 Report The Error of Fighting A comprehensive study of KDF’s corrupt ISS paper 245 by Anneli Both, April 2013, Terror with Terror, September 2015, activities in Somalia by Journalists for Justice in https://www.issafrica.org/iss-today/why-are-young- http://www.knchr.org/Portals/0/CivilAndPoliticalRe- their report Black and White. Kenya’s Criminal women-drawn-to-extremism ports/Final%20Disappearances%20report%20pdf.pdf Racket in Somalia, Nairobi 2015. KDF was quick to dismiss the report, but the accusations ISS brief by Irene Ndungu 26 June 2015; ISS The Daily Nation, August 13, 2015, still stand. paper 265, September 2014, http://www.nation.co.ke/news/Juli- http://www.jfjustice.net/userfiles/file/Research/ https://www.issafrica.org/uploads/Paper265.pdf us-Karangi-KDF-Corruption-Terro- Black%20and%20White%20Kenya’s%20Crimi- rism/-/1056/2831984/-/jrikx3/-/index.html nal%20Racket%20in%20Somalia.pdf

7 Sirkku Hellsten is a researcher at the Nordic Africa Institute in Uppsala, Sweden. Her research mainly investigates the connections between corruption, conflict, and security, and wider governance and human rights issues in Eastern Africa.

About the Author

RETHINKING NAI Policy Notes is a series of short briefs on policy ENERGY SECURITYTHE MEDITERRANEAN CRISIS AND BEYOND issues relevant to Africa today, intended for policy and decision makers in aid agencies, ministries of foreign affairs, development organisations, NGOs and the media. They aim to inform public debate and to generate input into the

Advice for policy makers facing a humanitarian catastrophe sphere of policymaking. Policy Note # 6:2015

Policy Note #9:2015 About our Policy Notes

The Nordic Africa Institute (Nordiska Afrikainstitutet) is a research centre on contemporary Africa with a special focus on the social sciences. It is jointly financed by Finland, Iceland and Sweden.

About the Institute

All our policy notes can be downloaded from our web site or ordered free of cost. Please visit www.nai.uu.se for more information.