Preventing Terrorism and Countering Violent Extremism and Radicalization that Lead to Terrorism: A Community-Policing Approach Preventing Terrorism and Countering Violent Extremism and Radicalization that Lead to Terrorism: A Community-Policing Approach Published by the Organization for Security and Co-operation in Europe Vienna, February 2014 © OSCE 2014 Designed in Warsaw by Homework Printed in Vienna by Stanzell Druck All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means — electronic, mechanical, photocopying, recording, or otherwise without the prior written permission of the publishers. This restriction does not apply to making digital or hard copies of this publication for internal use within the OSCE, and for personal or educational use when for non-profit and non-commercial purposes, providing that copies be accompanied by an acknowledgment of the OSCE as the source. ISBN 978–92–9235–023–9 Transnational Threats Department Office for Democratic Institutions OSCE Secretariat and Human Rights Wallnerstrasse 6, A-1010 Vienna, Austria Ul. Miodowa 10, 00–251 Warsaw, Poland http://www.osce.org/atu http://www.osce.org/odihr The publication of this guidebook was made possible thanks to generous contributions from the Australian Government, through its Department of Foreign Affairs and Trade, the Swiss Confederation, through its Federal Department of Foreign Affairs, the United States of Amer- ica, through its Department of State, and the Principality of Liechtenstein, through its Ministry of Foreign Affairs. The content of this publication, including the views, opinions, findings, inter- pretations and conclusions expressed herein do not necessarily reflect those of these donors. It is not a consensus-based document. This guidebook is published in line with the mandate of the OSCE Office for Democratic Insti- tutions and Human Rights. The OSCE Secretariat does not accept any liability for the accu- racy or completeness of any information, for instructions or advice provided, or for misprints. The OSCE Secretariat may not be held responsible for any loss or harm arising from the use of information contained in this publication and is not responsible for the content of the exter- nal sources, including external websites referenced in this publication. Contents List of Figures and Case Studies ................................................................................................... 6 Acknowledgements ............................................................................................................................ 9 List of Acronyms and Abbreviations ..........................................................................................12 Glossary ...................................................................................................................................................13 Foreword ..................................................................................................................................................17 Executive Summary ........................................................................................................................... 19 1. IntroductIon.....................................................................................24 2. PreventIng terrorIsm, Key concePts .........................................27 2.1. Preventing Terrorism as a Strategic Focus of Counterterrorism Efforts ....27 2.1.1. What Is Terrorism? ........................................................................................................27 2.1.2. Strategic Approach to Countering Terrorism ....................................................30 2.1.3. Accountability, Legitimacy and Trust in Counterterrorism .....................32 2.2. Understanding VERLT ................................................................................................34 2.2.1. What Is Terrorist Radicalization? ..........................................................................35 2.2.2. Conditions Conducive to Terrorism ........................................................................36 2.3. Countering VERLT .......................................................................................................40 2.3.1. Criminal-Justice Aspects in Countering VERLT ............................................42 2.3.2. Addressing the Conditions Conducive to Terrorism .......................................44 2.3.3. Engaging with Individuals Drawn to VERLT ..................................................46 2.4. Human Rights and Fundamental Freedoms Particularly at Stake in Preventing Terrorism and Countering VERLT ....................................................48 2.4.1. Human Rights and Fundamental Freedoms in the Fight against Terrorism .............................................................................................................................48 2.4.2. Freedom of Expression ..................................................................................................50 2.4.3. Freedom of the Media ....................................................................................................52 2.4.4. Freedom of Thought, Conscience and Religion or Belief .............................53 2.4.5. Respect for Private and Family Life .......................................................................54 4 Preventing Terrorism and Countering Violent Extremism and Radicalization that Lead to Terrorism: A Community-Policing Approach 2.4.6. The Right to Peaceful Assembly and Freedom of Association ..................55 2.4.7. Equality and Non-discrimination ..........................................................................56 3. CommunIty-Based Approaches to counterterrorIsm, Key concePts .............................................................................................61 3.1. The Community Safety and Security Paradigm ...............................................61 3.1.1. An Explanation of Community ................................................................................61 3.1.2. An Explanation of Community Cohesion and Community Resilience ....65 3.1.3. An Explanation of Community Security ............................................................66 3.2. Communities and Counterterrorism ..................................................................... 67 3.2.1 Community-targeted or Community-oriented Approaches to Counterterrorism .............................................................................................................68 3.2.2. The Police and Communities as Part of a Multi-stakeholder Approach to Counterterrorism .......................................................................................................70 4. A CommunIty-PolIcIng Approach to PreventIng terrorIsm and counterIng VERLT ....................................................................75 4.1. Basic Principles and Characteristics of Community Policing ......................75 4.2. Community Policing and Preventing Terrorism: Strategy and Policy .......79 4.2.1. Community Policing as Part of a Comprehensive Solution .......................79 4.2.2. The Interplay between Community Policing and Intelligence-led Policing .................................................................................................................................82 4.2.3. How Community Policing Can Benefit Terrorism Prevention .................85 4.2.4. The Benefits of Engaging with the Police from a Community Perspective ..........................................................................................................................88 4.2.5. Minimizing Risks in Applying a Community-policing Approach to Preventing Terrorism ........................................................................................ 89 5. ImPlementIng communIty-PolIcIng Approaches to PreventIng terrorIsm and counterIng VERLT ...................94 5.1. Transparency and Accountability of Police Operations .................................94 5.1.1. Community Policing and Counterterrorism Operations .............................95 5.1.2. Measures to Ensure the Human Rights Compliance and Accountability of Police Actions for Counterterrorism ................................................................99 Contents 5 5.2. Tasking and Training for Community Police Officers ...................................104 5.2.1. Policies and Standard Operating Procedures ................................................. 104 5.2.2. Community Police Team Learning and Development .................................105 5.2.3. A Five-element Model for Community Police Intervention ..................... 108 5.3. Communicating and Exchanging Information with the Public ..................112 5.3.1. Communicating with the Public on Counterterrorism ...............................112 5.3.2. Exchanging Information with Communities ...................................................118 5.4. Engaging with Communities to Prevent Terrorism and Counter VERLT ......................................................................................................126 5.4.1. Parameters of Police Engagement with Communities ............................... 126 5.4.2. Engaging with Specific Groups on Preventing Terrorism .........................133 5.4.3. Engaging with Youth ...................................................................................................135 5.4.4. Engaging with Women