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Counter-Terrorism Policing and Culturally Diverse Communities

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Counter-Terrorism Policing and Culturally Diverse Communities Final Report 2007 Australian Research Council Linkage Project Associate Professor Sharon Pickering Associate Professor David Wright-Neville Associate Professor Jude McCulloch Dr Pete Lentini Acknowledgements The project team gratefully acknowledges the support of the many Victorians who participated in this research, including members of the media and Victoria Police as well as representatives of Victoria’s diverse array of cultural and religious communities. The research has also benefited from the work and support of its Advisory Board and Victoria Police Senior Leadership. The project was initiated by the Victoria Police Counter-Terrorism Co-ordination Unit and was funded by the Australian Research Council and Victoria Police (Linkage Project LP0454956) through Monash University. About the Research Team Associate Professor Sharon Pickering, Criminology, Monash University. Associate Professor David Wright-Neville, Director Global Terrorism Research Centre, Monash University. Associate Professor Jude McCulloch, Criminology Discipline Convenor, Monash University. Dr Pete Lentini, Deputy Director Global Terrorism Research Centre, Monash University. Commander Dennis Henry, CTCU, Victoria Police. Dr Hussein Tahiri, CTCU, Victoria Police. Senior Sergeant Warren Ladgrove, CTCU, Victoria Police. Acting Inspector Mark Delahunty, CTCU, Victoria Police. Inspector David Blancowe, CTCU, Victoria Police. Superintendent Andrew Crisp, formerly CTCU, Victoria Police. Inspector Graeme Sprague, formerly CTCU, Victoria Police. David Bradley, Victoria Police. Mr Hass Dellal, Director, Australian Multicultural Foundation. Governance The Project Steering Committee was made up of four representatives from Monash University, four representatives from Victoria Police and one member of the Advisory Board. It met on a bimonthly basis to review project progress and directions. The Advisory Board was assembled from community representatives to give advice on the project. It met six times throughout the life of the three-year project and was instrumental in giving guidance and assistance to the project in the first year of research. Members of the Advisory Board are gratefully acknowledged for the time and support they gave the project and the ongoing community interface they helped the project to develop and maintain. Any shortcomings of the project remain the responsibility of the researchers and in no way can be contributed to members of the Advisory Board. This project adhered to the reporting processes of the Australian Research Council that govern the administration of Linkage Projects and in addition was required to meet the ethical standards governing research required by the Monash University Standing Committee on Ethics and Research with Human Subjects. The project also reported to the Corporate Committee of Victoria Police that oversees research partnerships. Counter-Terrorism Policing and Culturally Diverse Communities • 1 Members of the Project Advisory Board The Research Team wishes to thank the following people for their participation on the project’s advisory board: Joumanah Al Matrah Warren Ladgrove Leila Alloush Kathy Laster Alf Bamblett George Lekakis Sam Biondo Melba Marginson David Bradly Neil Mitchell James Butterfield Vicki Mitsos Kavitha Chandra-Shekeron Phong Nguyen Andrew Crisp Anne O’Rourke Gerard Daniells Gavin Queit Hass Dellal Jenny Semple Fatma Farouk Yasser Soliman Carmel Guerra Hussein Tahiri Abraham Hadgu Ahmed Tawfik Mohamed Hasan Cheong Tham Joo Dennis Henry Graham Wigg Roland Jabbour Dave Wright-Neville Dr Mohammed (Michael) Kheirallah Mike Zafiropoulos Ellen Kleimaker 2 • Counter-Terrorism Policing and Culturally Diverse Communities Table of Contents Acknowledgements 1 Table of Contents 3 Executive Summary 5 Abbreviations and Terminology 7 1.0 Overview 9 1.1 Aims 11 1.2 Research Approach and Methodology 12 1.2.1 Counter-Terrorism Legislation and Policy 12 1.2.2 Community Policing and Counter-Terrorism 13 1.2.3 Culturally Diverse Communities: Policing and Terrorism 14 2.0 Summary of Research Findings 17 2.1 Counter-Terrorism Legislation and Policy 17 2.2 Community Policing 19 2.3 Counter-Terrorism Policing 19 2.4 Counter-Terrorism Training 20 2.5 Police-Community Partnerships and Dialogue 21 3.0 Recommendations 23 3.1 Improve the Understanding and Approach to Community Policing and Counter-Terrorism Policing 23 3.2 Further Prioritise the Building of Resilient Policing Partnerships and Dialogues 24 3.3 Leadership, Support and Training 24 3.4 Enhance Communication and Integration of Community Policing and Counter-Terrorism Policing 26 4.0 Review of Relevant Literature 27 4.1 ‘Old’ and ‘New’ Terrorism: A Historical Account of Counter-Terrorism Measures 27 4.2 Counter-Terrorism Policing 29 4.3 Community Policing 31 4.3.1 What is Community Policing? 31 4.3.2 Key Issues in Community Policing 32 4.4 Counter-Terrorism and Community Policing: Challenges and Innovations 33 4.5 Human Rights 34 4.6 The Media 35 4.7 Counter-Terrorism Networks 35 4.8 Conclusions 36 5.0 Counter-Terrorism Legislation and Policy 38 5.1 Overview 38 5.2 An Optimal Counter-Terrorism Policy Framework 38 5.3 Policy Framework 40 5.3.1 Federal Government Policy 40 5.4 Victorian State Government Policy Approach to Countering Terrorism 42 5.5 Evaluating the Likely Impact of Victorian and Commonwealth Policy Frameworks 44 5.6 Legislative Regime 45 5.7 Victorian Legislation 47 5.7.1 Terrorism (Community Protection) Act 47 Counter-Terrorism Policing and Culturally Diverse Communities • 3 5.8 Terrorist-Related Charges 47 5.9 Prosecutions Under the Terrorism Offences in the Commonwealth Criminal Code 47 5.10 ASIO Detention and Questioning Warrants 48 5.11 Victorian Legislation 48 5.12 Concern and Levels of Knowledge of Counter-Terrorism Legislation Amongst Victorian Police 49 5.13 Effectiveness of Legislative Frameworks 49 5.14 Racial Profiling and Countering Terrorism 52 5.15 Community Policing, Counter-Terrorism Policing and National Security 55 6.0 Community Policing and Counter-Terrorism 60 6.1 Overview 60 6.2 Community Policing 60 6.2.1 Approach and Understanding 60 6.2.2 Challenges to Community Policing Resources 63 6.2.3 Community Policing and Cultural Diversity 64 6.2.4 Community Policing and Multicultural Liaison Officers 74 6.3 Counter-Terrorism Policing 77 6.3.1 The Changing Police Culture 78 6.3.2 The Counter-Terrorism Roles of Victoria Police 82 6.3.3 Counter-Terrorism Training 82 6.3.4 Counter-Terrorism Challenges 93 7.0 Culturally Diverse Communities: Policing and Terrorism 104 7.1 Overview 104 7.2 Processes of Radicalisation 105 7.2.1 Case Study: Lebanese Youth 109 7.3 Racism as a Latent Problem 110 7.4 Perceptions of Unequal Treatment: Muslim Communities 110 7.5 Additional Challenges 111 7.5.1 Jurisdictional Problems: The Need for Increased Federal-State Cooperation 111 7.5.2 Public Discourse of ‘Islamic’ Terrorism 112 7.5.3 The ‘Dangerous Power of Mass Media’ 113 7.5.4 A Reticence to Voluntarily Share Information with Victoria Police 113 8.0 Conclusion 115 3.0 Recommendations 117 3.1 Improve the Understanding and Approach to Community Policing and Counter-Terrorism Policing 117 3.2 Further Prioritise the Building of Resilient Policing Partnerships and Dialogues 118 3.3 Leadership, Support and Training 118 3.4 Enhance Communication and Integration of Community Policing and Counter-Terrorism Policing 120 References 122 4 • Counter-Terrorism Policing and Culturally Diverse Communities Executive Summary This Report is the culmination of a three-year meetings held between Monash University research partnership between Monash University researchers and members of the Victoria Police and Victoria Police. The focus of the Report, Counter-Terrorism Co-ordination Unit, who met at Counter-Terrorism Policing in Culturally Diverse least bimonthly for the three-year duration of the Communities, gives voice to a growing recognition project. At the very least this spirit of cooperation that the world is changing in ways that presage the provides a rebuttal of those who would claim that development of new approaches to criminal justice the innate sensitivities of terrorism preclude the and social cohesion. possibility of cooperative and fruitful research and dialogue. Against the background of the 9/11 terrorist attacks in the United States, and subsequent terrorist strikes In brief, the Report identifies: in Bali, Istanbul, Madrid and London, among other • Key issues in the perceptions and experiences of places, the study focuses on the challenge posed community and counter-terrorism policing from by terrorism in culturally diverse communities. More both police members and members of culturally specifically, it is an investigation into how counter- diverse communities in Victoria. terrorism policing in Victoria, one of the most multicultural regions in the world, is perceived and • Factors that are critical in the operation of experienced by both practitioners and members of counter-terrorism legislation and policy in Victoria. different ethnic and cultural communities. To this • Key issues in media reporting of counter-terrorism end the study was divided into four distinct streams and terrorism in Victoria (will be published as an focusing respectively on policing, community additional volume to this report). attitudes, Commonwealth and state legislation, and the influence of the media, and how these four areas • Recommendations for consideration based on intersect to shape the way in which counter-terrorism
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