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Volume | 410

Countering Terrorism
and Violent Extremism

Edited by Justin Healey


First published by

PO Box 438 Thirroul NSW 2515 Australia


www.spinneypress.com.au

© The Spinney Press 2017.

COPYRIGHT
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REPRODUCTION AND COMMUNICATION FOR EDUCATIONAL PURPOSES


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National Library of Australia Cataloguing-in-Publication entry

Title: Countering terrorism and violent extremism / Justin Healey (editor).

ISBN: 9781925339215 (ebook)

Series: Issues in society (Balmain, N.S.W.) ; v. 410.

Notes: Includes bibliographical references and index.

Subjects: Terrorism--Australia--Prevention.
Radicalism--Australia--Prevention.
National security--Australia.
Terrorism--Law and legislation--Australia.

Other Creators/Contributors: Healey, Justin, editor.

Dewey Number: 363.3250994

Cover images: Courtesy of iStock.


CONTENTS

CHAPTER 1 THE THREAT OF TERRORISM AND VIOLENT EXTREMISM


Global Terrorism Index 1
Terrorist threat worldwide 5
Listed terrorist organisations 9
National Terrorism Threat Advisory System 10
National terrorism threat levels 11
Security and your community: frequently asked questions 12
Australians have little to fear from terrorism at home – here’s why  14
Australians want tougher action against terrorism 15

CHAPTER 2 COUNTER-TERRORISM LAWS AND STRATEGIES


Australia’s Counter-Terrorism Strategy: strengthening our resilience 16
National security: what Australia is doing 17
Countering violent extremism 18
What Australia is doing: current initiatives 19
National security agencies 20
Australian national security: what I can do 21
Australia’s counter-terrorism laws: questions and answers 23
Foreign incursions and recruitment offences 26
Fact sheet: counter-terrorism laws 27
Australia’s human rights score card: counter-terrorism 28
Citizenship in an age of home‑grown terrorism 30
Sorting fact from fiction in the citizenship bill debate 32

CHAPTER 3 COUNTERING EXTREMISM AND RADICALISATION


What is violent extremism? 34
What is radicalisation? 35
Why are young Australians being drawn to Islamic State? 36
Radicalisation and the lone wolf: what we do and don’t know 39
Understanding the radicalisation process 41
I am worried somebody I know is radicalising ... what can I do? 43
Tough is not enough: ten smarter ways to counter violent extremism 45
Gen Y jihadists: preventing radicalisation in Australia 48

Exploring issues – worksheets and activities 53


Fast facts 57
Glossary 58
Web links 59
Index 60
INTRODUCTION

Countering Terrorism and Violent Extremism is Volume 410 in the ‘Issues in Society’ series of
educational resource books. The aim of this series is to offer current, diverse information
about important issues in our world, from an Australian perspective.

KEY ISSUES IN THIS TOPIC


Acts of terror and expressions of violent extremism are a confronting reality around the globe, and an ongoing
threat in this country. Australians must remain vigilant against the spread of terror and extremism by supporters
of Islamic State and other ideologically violent groups.
How should Australia deal with the terrorist threat without unfairly targeting Muslim communities or infringing
upon fundamental human rights? Why are some young Australians being drawn to radical Islamism? The factors
that result in radicalisation are complex and varied – are there smarter ways to counter violent extremism?
This book focuses on the threat of terrorism and violent extremism in Australia and abroad; examines national
security strategies and counter-terrorism laws in Australia; and explores ways of effectively countering extremism
and radicalisation. How do we turn back the tide of fear in an age of increasing terror?

SOURCES OF INFORMATION
Titles in the ‘Issues in Society’ series are individual resource books which provide an overview on a specific subject
comprised of facts and opinions.
The information in this resource book is not from any single author, publication or organisation. The unique value
of the ‘Issues in Society’ series lies in its diversity of content and perspectives.
The content comes from a wide variety of sources and includes:
hh Newspaper reports and opinion pieces hh Statistics and surveys
hh Website fact sheets hh Government reports
hh Magazine and journal articles hh Literature from special interest groups

CRITICAL EVALUATION
As the information reproduced in this book is from a number of different sources, readers should always be aware
of the origin of the text and whether or not the source is likely to be expressing a particular bias or agenda.
It is hoped that, as you read about the many aspects of the issues explored in this book, you will critically evaluate
the information presented. In some cases, it is important that you decide whether you are being presented with
facts or opinions. Does the writer give a biased or an unbiased report? If an opinion is being expressed, do you
agree with the writer?

EXPLORING ISSUES
The ‘Exploring issues’ section at the back of this book features a range of ready-to-use worksheets relating to
the articles and issues raised in this book. The activities and exercises in these worksheets are suitable for use by
students at middle secondary school level and beyond.

FURTHER RESEARCH
This title offers a useful starting point for those who need convenient access to information about the issues
involved. However, it is only a starting point. The ‘Web links’ section at the back of this book contains a list of
useful websites which you can access for more reading on the topic.
CHAPTER 1
The threat of terrorism and violent extremism

GLOBAL TERRORISM INDEX


EXECUTIVE SUMMARY FROM THE LATEST ‘GLOBAL TERRORISM INDEX’,
PRODUCED BY THE INSTITUTE FOR ECONOMICS AND PEACE

T
his is the fourth edition of the Global Terrorism they were active in to 28. This is largely why a record
Index which provides a comprehensive summary number of countries recorded their highest levels of
of the key global trends and patterns in terrorism terrorism in any year in the past 16 years.
over the last 16 years, covering the period from the There was a ten per cent decline from 2014 in the
beginning of 2000 to the end of 2015. number of terrorism deaths in 2015 resulting in 3,389
Produced by the Institute for Economics and Peace, fewer people being killed. Iraq and Nigeria together
the GTI is based on data from the Global Terrorism recorded 5,556 fewer deaths and 1,030 fewer attacks than
Database which is collected and collated by the in 2014. However, with a global total of 29,376 deaths,
National Consortium for the Study of Terrorism 2015 was still the second deadliest year on record.
and Responses to Terrorism (START), a Department While the weakening of ISIL and Boko Haram in
of Homeland Security Centre of Excellence led by their central areas of operations in Iraq and Nigeria is
the University of Maryland. The Global Terrorism positive, this change has coincided with two key negative
Database is considered to be the most comprehensive trends which have driven up terrorism in the rest of the
dataset on terrorist activity globally and has now
codified over 150,000 terrorist incidents.
The research presented in this report highlights a There was a ten per cent decline from 2014
complex and rapidly changing set of dynamics in global in the number of terrorism deaths in 2015
terrorism. While on the one hand the top-line statis- resulting in 3,389 fewer people being killed
tics highlight an improvement in the levels of global ... However, with a global total of 29,376
terrorism, the continued intensification of terrorism deaths, 2015 was still the second deadliest
in some countries is a cause for serious concern, and year on record.
highlights the fluid nature of modern terrorist activity.
The complexity of this year’s GTI is underscored by the
fact that although 76 countries improved their GTI
scores compared to 53 countries that worsened, the
overall global GTI score deteriorated by six per cent
since last year as many moderately affected countries
experienced record levels of terrorism.
The 2016 GTI finds there has been a change from the
pattern of the previous four years. 2015 saw the total
number of deaths decrease by ten per cent, the first
decline since 2010.
The number of countries recording a death from
terrorism also decreased by one. This decline in
terrorism deaths is mainly attributed to a weakened
Boko Haram and ISIL in both Nigeria and Iraq due to the
military operations against them. However, expanded
activities by both of these groups in other countries is
posing new threats in other parts of the world. Boko
Haram has expanded into Niger, Cameroon and Chad,
increasing the number of people they have killed
through terrorism in these three countries by 157 per
cent. Meanwhile ISIL and its affiliates were active in 15
new countries, bringing the total number of countries

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 1


world. The first is ISIL’s shift in tactics to transnational devastating in the history of these countries and reflect
terrorism, not just to other parts of the Middle East a disturbing return of the transnational group-based
but to Europe as well. The second key negative trend is terrorism more associated with al-Qa’ida before and
Boko Haram’s extension into neighbouring West African immediately after September 11.
countries which has led to Cameroon and Niger rising It is important to note that while the international
to 13th and 16th in the GTI. community’s focus has intensified on ISIL and its activi-
Accompanied with these two key negative trends ties in Iraq and Syria, last year recorded the deadliest
was an increase in the number of ISIL-affiliated groups year for the Taliban in Afghanistan. Both terrorist
that undertook attacks. The research found that the deaths and battlefield deaths committed by the Taliban
number of countries with greater than 25 deaths rose significantly increased in 2015. Terrorism increased 29
to 34, an increase of seven to the highest numbers ever per cent to 4,502 deaths and battlefield deaths increased
recorded. At least six countries saw very significant 34 per cent to over 15,000.
deteriorations in their GTI scores in 2015 leading This complex global picture was rounded out by
to large rank changes from the previous year. This pockets of more positive news whereby many other
accounted for the overall deterioration in the global countries saw improvements in their levels of terrorist
GTI score of six per cent as these falls outweighed the activity. One less country recorded a terrorist attack
substantial gains in Nigeria and Iraq. These countries in 2015 than 2014, which halted the prior four-year
include; France, Turkey, Saudi Arabia, Kuwait, Tunisia trend of yearly increases in the number of countries
and Burundi. experiencing terrorist activity. There was also progress
In Europe, ISIL’s transnational tactics in combina- in countering terrorist groups through international
tion with lone actor attacks inspired by the group drove coalitions which led to reductions in deaths in the
an increase in terrorism to its highest levels ever. This Central African Republic, Somalia and Sudan. Pakistan
increase was seen in many OECD countries resulting continued to see declines in its levels of terrorism due
in a 650 per cent increase in deaths to 577 from 77 to infighting within the largest active group, the Tehrik-
in 2014. ISIL’s role in this increase was significant as i-Taliban Pakistan (TTP), as well as to the operations
more than half of the 577 deaths were in connection of the Pakistan Army in the Federally Administered
to the group. The attacks by ISIL in Paris, Brussels and Tribal Areas. Improvements continued to be recorded in
in Turkey’s capital Ankara, were amongst the most India which historically has had high levels of terrorist
activity. Similarly, Thailand had the lowest number
of deaths from terrorism since 2005, despite the 2015
While terrorism as a form of violence has a Bangkok bombing which killed 20.
major psychological impact on the societies The global economic impact of terrorism in 2015
it touches, there are other forms of was broadly comparable to the previous year, costing
violence which are more devastating. Major the global economy US$89.6 billion. While this is a
armed conflicts resulted in more deaths in significant number in its own right, it is important to
2015 as well as the wholesale destruction note that the economic impact of terrorism is small
of economies. The global homicide rate is compared to other major forms of violence. This
amount is only one per cent of the total global economic
15 times the death rate from terrorism. impact of violence which reached $13.6 trillion in 2015
(PPP). Only in situations of intense terrorist activity
like Iraq are the costs of terrorism very significant. The
cost of terrorism to the Iraqi economy were equivalent
to 17 per cent of its GDP in 2015.
Statistical analysis of the drivers of terrorist activity
show there are two distinct sets of factors associated
with terrorism, depending on whether the country is
developed or developing. The first set of factors which
are closely linked to terrorist activity are political violence
committed by the state and the presence of a conflict.
The research finds that 93 per cent of all terrorist attacks
between 1989 and 2014 occurred in countries with high
levels of state-sponsored terror, involving extra-judicial
killing, torture, and imprisonment without trial.
Similarly, over 90 per cent of all terrorist deaths
occurred in countries already engaged in some form of
conflict whether internal or international. This means
only 0.5 per cent of terrorist attacks occurred in countries
that did not suffer from conflict or political terror. This
underlines the close link between existing conflicts,

2 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


DEATHS FROM TERRORISM, 2000-2015
2015 saw the first reduction in terrorism since 2010, although it was still the second worst year recorded for terrorism.

35,000
ISIS declares caliphate

30,000

Iraq
Deaths from terrorism

25,000

20,000 Nigeria
Syrian civil
September 11 US invades Iraq US troop surge war begins
15,000
US invades
Afghanistan Afghanistan

10,000

5,000
Rest of the world

0
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Year Source: START GTD, IEP calculations

grievances and political violence with terrorist activity. prevention, Cunningham and Koser from GCERF outline
When analysing the correlates of terrorism there the role the private sector can play in preventing violent
are different factors that are statistically significant extremism, and von Einsiedel from the United Nations
depending on the level of development. In the OECD University Center for Policy Research describes the
countries, socio-economic factors such as youth unem- history of the UN’s work to resolve conflicts is stemming
ployment, militarisation, levels of criminality, access to terrorism.
weapons and distrust in the electoral process are the most While terrorism as a form of violence has a major
statistically significant factors correlating with terrorism. psychological impact on the societies it touches, there
This reinforces some of the well-known drivers of are other forms of violence which are more devastating.
radicalisation and extremism. In developing countries, Major armed conflicts resulted in more deaths in 2015
the history of conflict, levels of corruption, acceptance as well as the wholesale destruction of economies. The
of the rights of others and group based inequalities are global homicide rate is 15 times the death rate from
more significantly related to terrorist activity. terrorism.
Individual terrorist acts are unpredictable but the
report highlights some common statistical patterns. KEY FINDINGS
These patterns help inform the future deadliness of
terrorist organisations, the trends in their tactics and 2016 GTI RESULTS
the effectiveness of counter-terrorism operations. •• Seventy-six countries improved their scores in the
The 2016 GTI report reinforces the fact terrorism is a 2016 GTI while 53 countries deteriorated. However,
highly concentrated form of violence, mostly committed the overall GTI score deteriorated by six per cent
in a small number of countries and by a small number of since last year due to many countries experiencing
groups. The five countries suffering the highest impact record levels of terrorism.
from terrorism as measured by the GTI; Iraq, Afghan- •• The five countries with the highest impact from
istan, Nigeria, Pakistan and Syria, accounted for 72 per terrorism as measured by the GTI are Iraq,
cent of all deaths from terrorism in 2015. Similarly, only Afghanistan, Nigeria, Pakistan and Syria. These five
four groups were responsible for 74 per cent of all these countries accounted for 72 per cent of all deaths
deaths; ISIL, Boko Haram, the Taliban and al-Qa’ida. from terrorism in 2015.
This report also includes commentary on various •• Deaths from terrorism decreased by ten per cent in
aspects of terrorism. This includes efforts to understand 2015 to 29,376. This is the first decrease in number
terrorism such as Maggiolini and Varvelli from ISPI who of deaths recorded since 2010.
explore why there are hotbeds of radicalisation, and •• Iraq and Nigeria had the biggest decreases with
Schori Liang from GCSP who looks at the connection 5,556 fewer deaths. This constitutes a 32 per cent
between criminal networks and terrorism. There are reduction in these two countries since 2014.
also explanations of what is being done to discourage •• In OECD member countries, deaths from terrorism
and prevent the spread of terrorism. The Victoria Police dramatically increased in 2015, rising by 650 per
Counter Terrorism Command’s Specialist Intelligence cent when compared to 2014. Twenty-one of the 34
Team describe their experiences with community-driven OECD countries experienced at least one terrorist

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 3


attack with the majority of deaths occurring in deaths in the year.
Turkey and France. •• The Taliban in Afghanistan had a 29 per cent
•• ISIL-affiliated groups undertook attacks in 28 increase in the number of people it killed in 2015,
countries in 2015, up from 13 countries in 2014. responsible for 4,502 deaths from terrorism during
•• There were 274 known terrorist groups that carried the year.
out an attack in 2015, of these 103 groups did not
kill anyone. ECONOMIC IMPACT OF TERRORISM
•• Twenty-three countries recorded their highest •• The global economic impact of terrorism reached
number of deaths from terrorism in 2015. This is six US$89.6 billion in 2015, decreasing by 15 per cent
more than the previous high of 17 countries in 2014. from its 2014 level.
•• Iraq is the country suffering the highest economic
TRENDS impact from terrorism, reaching 17 per cent of its
•• Of the last 16 years, the worst year for terrorism GDP in 2015.
was 2014 with 93 countries experiencing an attack •• Tourism’s contribution to GDP is twice as large in
and 32,765 people killed. countries with no terrorist attacks compared to
•• Since 2006, 98 per cent of all deaths from terrorism countries with attacks.
in the US have resulted from attacks carried out by •• The economic resources devoted to peacekeeping
lone actors, resulting in 156 deaths. and peacebuilding represent two per cent of the
•• ISIL foreign fighters who have gone to Syria economic impact of armed conflict and terrorism.
generally have high levels of education but low
incomes, with many fighters joining in part due to a CORRELATES AND DRIVERS OF TERRORISM
feeling of exclusion in their home countries. •• Ninety-three per cent of all terrorist attacks
•• There were 18 deaths caused by ISIL-affiliated between 1989 and 2014 occurred in countries with
attacks in the OECD in 2014. This number increased high levels of state-sponsored terror – extra-judicial
significantly in 2015, to 313 deaths from 67 attacks. deaths, torture and imprisonment without trial.
•• Half of all plots with an ISIL connection have •• Over 90 per cent of all terrorism attacks occurred
been conducted by people who have had no direct in countries engaged in violent conflicts.
contact with ISIL. •• Only 0.5 per cent of terrorist attacks occurred
in countries that did not suffer from conflict or
TERRORIST GROUPS political terror.
•• In 2015 four groups were responsible for 74 per cent •• Terrorism is more likely to occur in OECD member
of all deaths from terrorism: ISIL, Boko Haram, the countries with poorer performance on socio-
Taliban and al-Qa’ida. economic factors such as opportunities for youth,
•• ISIL surpassed Boko Haram as the deadliest belief in the electoral system, levels of criminality
terrorist group in 2015. ISIL undertook attacks in and access to weapons.
252 different cities in 2015 and was responsible for •• In both OECD and non-OECD countries terrorism
6,141 deaths in the year. is statistically related to the acceptance of the
•• Boko Haram had an 18 per cent reduction in the rights of others, good relations with neighbours,
number of people it killed in 2015, responsible for likelihood of violent demonstrations and political
5,478 deaths during the year. terror.
•• Al-Qa’ida had a 17 per cent reduction in the number •• Individual terrorist acts are unpredictable but
of people it killed in 2015, responsible for 1,620 follow common statistical patterns. This aids
in understanding similarities between terrorist
organisations, their tactics and the effectiveness of
counter-terrorism operations.

Institute for Economics and Peace (2016). Global


Terrorism Index 2016, pp. 2-5. Retrieved from
http://economicsandpeace.org on 16 November 2016.

4 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


TERRORIST THREAT WORLDWIDE
DEPARTMENT OF FOREIGN AFFAIRS AND TRADE TRAVEL BULLETIN
This bulletin is reissued quarterly and does not suggest
an increased threat level. It contains new information
on attacks in Turkey, Bangladesh, France and Malaysia.
The period around the holy month of Ramadan (June/July
2016) has seen a spike in attacks. The influence of ISIL in
South-East Asia continues to grow. Attacks in Nice, Dhaka
and other locations indicate a trend toward relatively
unsophisticated, yet deadly, attacks against soft targets.
Always subscribe to the travel advice for your destination.
Conditions can change suddenly. We recommend you:

•• Subscribe to updates
•• Register your travel plans
•• Get the right travel insurance
•• Follow us on Facebook and Twitter.

T
can, and have been, harmed in indiscriminate attacks
his bulletin should be read in conjunction with or attacks aimed at others.
country advisories, which provide details on any Social media and online platforms are a primary
specific and credible terrorism threats at your vehicle to support and encourage attacks in western
destination. Travel advice explained also outlines ways countries and against western interests elsewhere.
to manage risk for our country levels. These calls are intended to motivate sympathisers
to attack Western interests, often in unsophisticated
Nature of the terrorist threat but lethal ways. The attack in Nice in July 2016
Terrorism is violence aimed at achieving political or highlights the capacity of terrorists to conduct such
ideological objectives. Attacks can be centrally directed attacks against soft targets in Western countries with
from a structured organisation or network or by no warning. Attacks in San Bernadino and Orlando in
individuals acting without any direct external control the United States also highlight how individuals can
(the so called ‘lone wolf’). radicalise quickly, under the radar of local authorities.
There is a continuing and long-standing threat of As seen from the spike of attacks in June and July
terrorist attack across the world. Since 2000, there 2016, the period surrounding Ramadan presents
has been a nine-fold increase in the number of deaths additional risks.
from terrorism, rising to 32,685 in 2014 (sourced from
Institute for Economics and Peace).  The countries Foreign fighters
with the most number of attacks include Iraq, Nigeria, A large number of foreigners are currently fighting in
Afghanistan, Pakistan and Syria. Syria and Iraq. Information on the action taken by the
While locals of foreign countries are often the Australian Government under the Criminal Code Act
ones most impacted, numerous terrorist groups have 1995 against Australian fighters and on the declared
demonstrated the intent and capability to attack area in Syria is at the National Security website.
Western interests.
The terrorist threat to Australians overseas has Types of attacks
become more diffuse in recent years as new groups have Modes of attack by terrorists may include one or a com-
emerged, individuals have become self-radicalised, and bination of the following:
existing groups such as central Al-Qaeda (AQ) remain •• Kidnappings: hostage taking is a long-established
a threat. At the same time, terrorist safe havens have terrorist tactic. Significant ransom payments are
emerged in Mali, Libya, Nigeria, Somalia, Syria/Iraq typically demanded for the kidnapping victim’s
and Yemen. This affords a wider range of groups the release, though most recently a number of hostages
opportunity to plan more sophisticated attacks. taken in Syria have been executed for ideological
Recent events in France, Bangladesh, Turkey, United propaganda purposes, as described in the
States, and Australia highlight the risks posed by individ- Kidnapping page.
uals motivated by the current situation in Syria and Iraq. •• Armed attackers: the use of weapons such as
Australia and Australians are viewed by the Islamic firearms or bladed weapons often against symbolic
State in Iraq and the Levant (ISIL) and other terrorist targets such as members of the security forces, or
groups as a target for terrorist attacks. This threat against unarmed civilians. Such attacks have been
extends worldwide. Even in cases where attacks may carried out in London, Belgium, Ottawa, Dhaka
not specifically target Australian interests, Australians and Paris in recent years, including in November

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 5


2015 when attacks in Paris principally involving capability remains difficult. An attack using sarin
firearms resulted in at least 129 deaths. took place in a Tokyo subway in 1995, and the
•• Vehicle attacks: In recent years, there have been UN has confirmed that sarin and other chemical
several attacks using vehicles to run down civilians weapons have been used in the Syria conflict since
in crowded places or target military or police 2013. Militants may have used crude chemical
personnel. Such attacks have been carried out in weapons in Iraq.
France, Canada and the UK.
•• Bombings: including the use of large and small- Common targets for terrorist attacks
scale improvised explosive devices against Terrorists may target:
buildings, events or public places. Improvised •• Local government interests: including symbols,
explosive devices were used in Boston in 2013, offices and infrastructure associated with national
Bangkok in 2015 and Brussels and Lahore in 2016. or local governments, public transport, military and
•• Suicide operations: where attackers detonate security forces bases
explosives or launch direct attacks in the •• Identifiably Western interests: including embassies,
expectation of death. Since 2001, mass casualty airlines, foreign oil and gas infrastructure, premises
suicide attacks have occurred in the US, Bali, of multinational companies (including employee
Jakarta, London, Madrid, Paris, Ankara, Istanbul residential compounds) and international schools
and Brussels. •• Places of mass gathering: including public
•• Hijackings: where civilian/commercial aircraft buildings and infrastructure such as shopping
and other transport infrastructure are seized and malls, hotels, markets, public transport terminals,
hostages taken. This can include aircraft being used airports, tourist sites and public areas
as weapons, such as the 2001 attacks in the US. •• Gatherings of Westerners: including hotels,
•• Other attacks on commercial aircraft and restaurants, nightclubs and other entertainment
transport: including attacks using explosives infrastructure catering to foreign clientele
smuggled on board aircraft, portable anti-aircraft •• Places of worship: including mosques, churches,
weapons (MANPADs), and using explosives-laden temples and synagogues of all faiths, as well as
vessels against shipping, trains, aircraft or other religious ceremonies and processions.
forms of transport. Terrorists have demonstrated
a continuing capacity to evolve their tactics and Travellers should be aware that significant dates, ann-
attack methods to seek to defeat changes in iversaries, religious festivals and political events (such
aviation security. Attempts were made to destroy as elections) are considered symbolic by terrorists and
aircraft using explosives in 2001, 2006, 2009, have been used in the past to mount attacks. Terrorists
2010, 2015 and 2016. An explosive device placed have also conducted attacks in response to broader inter-
on a flight between Sharm el Sheihk in Egypt to St national political or social developments, such as the
Petersburg killed 224 people in October 2015. release of films and cartoons considered to be offensive.
•• Unconventional attacks: including the potential
use of chemical, biological, radiological and nuclear Mitigation
materials to cause harm. Some terrorist groups To reduce your exposure you should:
have advocated the use of unconventional weapons •• Research your proposed destination before you
though this kind of attack, though developing this book, such as by regularly checking the country
travel advice and subscribing to the advice
•• Ensure your itinerary does not include any areas
where the travel advisory advises against travel; this
may also include border areas or other locations
within an otherwise low-risk country:
−− Consider if you need to be travelling to areas
assessed as ‘Reconsider your need to travel’ or if
you persist, take additional precautions
−− Be aware that if the travel advice level changes after
you have booked, but before you have departed,
you may be able to make a claim on your travel
insurance policy
−− Be prepared to postpone or cancel activities for
safety reasons
•• Monitor the news in the country and region you
plan to visit to identify any issues that might affect
your safety, including knowing about symbolic days
or political events to avoid
•• Be vigilant in public areas and places that attract

6 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


foreigners and Westerners, such as embassies, and South Sulawesi. We continue to receive
hotels, restaurants, bars, nightclubs and identifiably information that indicates that terrorists may be
Western interests: planning attacks in Indonesia, which could take
−− Avoid areas with poor security place anywhere at any time.
−− Identify emergency exits and have an action plan in •• Philippines/Malaysia: Since 2015, authorities have
the event of a security threat made a number of arrests of persons involved in
−− Have a telephone and emergency contact attack planning in Malaysia. An ISIL-claimed attack
information with you at all times on the outskirts of Kuala Lumpur in June 2016
•• In high threat locations consider obtaining profes- caused a number of injuries. Southern Philippines-
sional security advice and ensure that you adhere to based terrorist groups have the capability to launch
strict security procedures, which may include: attacks and kidnappings throughout the Philippines
−− Avoiding routines that make you an easy target – and in neighbouring parts of Malaysia. Since 2014,
vary the time and route of your regular journeys a number of foreign nationals have been kidnapped
−− Considering ways of minimising your profile from these coastal locations, and some have
−− Undertaking formal risk assessments. been beheaded. The kidnapping risk in this area
is highest in central and western Mindanao, the
Attacks harming Australians Zamboanga peninsula, the Sulu Sea and between
Since 2001, over 100 Australians have been killed in Sandakan and Tawau in eastern Sabah (Malaysia).
terrorist attacks in public places. These attacks include: •• Thailand: A bomb attack at the Erawan shrine central
•• The attack in Tunis on the Bardo National Museum Bangkok killed 20 people and injured over 120 in August
on 18 March 2015 2015. There is also a long-standing terrorist threat
•• The attack in Nairobi on Westgate Mall in 2013 centred in the southern provinces closest to Malaysia.
•• The attacks in Jakarta on the Marriott and Ritz Attacks by separatists have claimed the lives of more
Carlton Hotels in 2009 than 6,000 people in the past decade. For this reason
•• The attacks in Mumbai on the Taj and Trident we recommend against all travel to the provinces of
Hotels in 2008 Yala, Pattani, Narathiwat and Songkhla, or overland by
•• Bali bombings of 2005 train or road to and from the Malaysian border through
•• The Jakarta Marriott bombing of 2003 these provinces, due to high levels of ongoing violence.
•• The Bali nightclub bombings of 2002
•• The World Trade Center attacks in New York in 2001. South and West Asia
•• Attacks by terrorist groups across Afghanistan and
Over the past decade, Australians have also been Pakistan remain a regular occurrence, targeting both
kidnapped and held hostage by terrorists in Somalia, local government and Western interests. An attack
Syria, the southern Philippines and Burkina Faso. in Lahore in March 2016 killed 70 people and injured
Substantial ransoms have been demanded for their hundreds more. Australians remain at high threat
release. The Australian Government’s longstanding of kidnapping in all parts of Afghanistan and the
policy is that it does not make payments or concessions parts of Pakistan closest to Afghanistan, including
to kidnappers. The Australian Government considers Khyber-Pakhtunkhwa, Balochistan and the Federally
that paying a ransom increases the risk of further Administered Tribal Areas. A number of major attacks
kidnappings, including of other Australians. have been launched in recent years against hotels
in Pakistan and Afghanistan that cater to Western
Regional terrorism threat visitors. Security arrangements for Australian
Terrorist attacks can happen anywhere in the world. Embassy staff in Kabul are at a high level at all times.
The following information focuses on countries and •• Although less frequent, terrorist groups active in
risks most relevant to Australian travellers. India have previously demonstrated the intent
and capability to attack locations such as hotels,
South-East Asia restaurants and public markets in major Indian cities
•• Indonesia: The 14 January 2016 attack in central where Westerners congregate. Australians were killed
Jakarta demonstrates that terrorists retain the in a major coordinated attack in Mumbai in 2008.
intent to carry out deadly attacks. In the past, •• Since September 2015, a number of foreigners
terrorists have launched a number of attacks have been murdered and injured in Bangladesh
against Indonesian security forces and locations in attacks that have been claimed by terrorists in
frequented by foreigners such as nightclubs, Syria. For example, 18 foreigners were killed in
restaurants, hotels and embassies. Major attacks an attack in Dhaka in July 2016. In this period,
have been carried out in Bali and Jakarta, killing a number of other attacks have targeted the
a large number of foreigners, including many security forces and local civilians. There is reliable
Australians. In recent years authorities have information to suggest that militants may be
disrupted terrorist cells in Bali, Jakarta and planning to target Australian and Western interests
elsewhere in Java, West Nusa Tenggara, Sumatra in Bangladesh.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 7


Middle East and North Africa mainly foreign tourists. We continue to receive
•• The ongoing civil war in Syria and emergence information that indicates that terrorists may be
of terrorist safe havens has led to a profound planning attacks in Tunisia which could take place
destabilisation in the region, such as recent attacks at any time. Further terrorist attacks are likely,
in the border areas of Jordan. ISIL continues including in tourist areas.
to hold territory in northern Syria and Iraq, •• There is a continuing threat of attack in Yemen
prompting military action by a number of Western and elsewhere in the Arabian Peninsula from the
and regional governments including Australia. This activities of Al Qaeda in the Arabian Peninsula
has increased the likelihood of reprisal attacks by (AQAP). The group has carried out a number of
ISIL supporters across the world. Australians in major attacks in Yemen, including on Western
Syria and Iraq, including Iraqi Kurdistan, remain at interests, and has been involved in numerous
significant risk of terrorist attack and kidnapping. kidnappings of Westerners. The tempo of attacks in
Westerners kidnapped in Syria have been executed Saudi Arabia continues to be high.
for propaganda purposes. Australian businesses and
NGOs should have robust security arrangements. East and West Africa
•• A number of terrorist attacks have occurred in major •• The ongoing military operations in Somalia
cities in Turkey since October 2015. This includes against the Al-Shabaab terrorist organisation has
three large suicide bombings in Ankara that killed destabilised the security environment in the wider
a total of 175 people and two suicide bombings in a region. Somalia-based terrorists have threatened to
tourist areas in Istanbul which killed 18 foreigners. An attack the interests of East African Governments
attack at Istanbul’s Attaturk airport killed 45 people supporting the African Union Mission in Somalia.
and injured more than 200 in June 2016. We continue These governments include Burundi, Ethiopia,
to receive information that indicates that terrorists Kenya, Djibouti and Uganda. Major terrorist
may be planning attacks in Turkey which could take attacks linked to the situation in Somalia have
place at any time. occurred in Kampala (2010), Nairobi (2013),
•• The fragile security environment across Lebanon has Djibouti (2014) and Garissa (2015). Al-Shabaab was
deteriorated significantly as a result of the conflict responsible for an explosion on board an airliner
in Syria. The spill over of violence has exacerbated departing Mogadishu airport in February 2016.
tensions between Sunni and Shia groups including Terrorist attacks have been disrupted in Ethiopia.
Hezbollah, and major attacks have occurred in Beirut, The situation in Somalia has caused a decline in
the Beka’a Valley and areas near Syria. Travellers to the security environment along the coast of Kenya
Lebanon should monitor the travel advice closely as and for mariners in the Horn of Africa and Indian
the level of advice changes frequently. Ocean. See our Piracy bulletin for details.
•• Since November 2015, attacks on hotels in Bamako, •• In recent years the Boko Haram (BH) terrorist
Mali, Ouagadougou, Burkina Faso, and at a resort near organisation has carried out a number of major
Abidjan, Cote d’Ivoire, killed more than 71 people, attacks in the north of Nigeria as well as in Abuja,
including a number of foreigners. Australian officials including on the UN building in 2010. Thousands
visiting these countries have adopted enhanced of people have been killed. BH has kidnapped
security procedures. foreign nationals in Nigeria, as well as neighbouring
•• In recent years, the security environment across countries, and has demanded significant ransoms
North Africa and the Sahel region has deteriorated for their release. BH has links to AQIM and AQ, and
due to the activities of terrorist groups such as recently pledged allegiance to ISIL.
Al-Qaeda in the Islamic Maghreb (AQIM) in Mali Europe
and neighbouring countries, the ongoing conflict in •• We currently assess that a heightened risk of
Libya and the situation in Iraq and Syria. AQIM has terrorist attack exists in a number of European
kidnapped a number of westerners from locations
across the region and continues to threaten to
attack western interests. Military intervention in
Mali in 2012 by France and other countries against
an AQIM safe haven has dispersed militants across
the broader region, where they now pose a threat
in Mali, Niger, Burkina Faso and Cote d’Ivoire, and
remote areas in the south of Algeria, Tunisia and
Libya. Ongoing civil conflict in Libya and emerging
ungoverned spaces has led to a number of attacks
on Western interests and a string of kidnappings of
westerners by groups associated with AQ and ISIL.
•• Two terrorist attacks against locations frequented
by foreigners in Tunisia in 2015 killed 60 people,

8 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Listed terrorist organisations
F
or an effective counter-terrorism regime, it is vital that our laws target not only terrorist acts, but also the organisations
that plan, finance and carry out such acts. In 2002, a range of terrorist organisation offences were inserted into
the Criminal Code Act 1995. Under the law, there are two ways for an organisation to be identified as a terrorist
organisation. The prosecution can prove beyond reasonable doubt that an organisation is a terrorist organisation as part
of the prosecution for a terrorist offence. Alternatively, the organisation may be specified in Regulations as a terrorist
organisation. This process, known as ‘listing’, requires certain processes set out in the legislation to be followed. Currently,
20 organisations are listed as terrorist organisations under the Criminal Code. They are:
hh Abu Sayyaf Group hh Hamas’ Izz al-Din al-Qassam Brigades hh Jemaah Islamiyah
hh Al-Murabitun hh Hizballah’s External Security hh Kurdistan Workers’ Party
hh Al-Qa’ida Organisation hh Lashkar-e Jhangvi
hh Al-Qa’ida in the Arabian Peninsula hh Islamic Movement of Uzbekistan hh Lashkar-e-Tayyiba
hh Al-Qa’ida in the Islamic Maghreb hh Islamic State hh Palestinian Islamic Jihad
hh Al-Shabaab hh Jabhat al-Nusra Australian National Security.
hh Ansar al-Islam hh Jaish-e-Mohammed Listed terrorist organisations. Retrieved from
hh Boko Haram hh Jamiat ul-Ansar www.nationalsecurity.gov.au on 22 February 2016.

countries due to the conflict in Syria and Iraq. In the •• Reports produced by private analysts, think
past decade, major terrorist attacks have occurred tanks and non-government organisations on
in a number of European cities, such as Glasgow, security issues, such as the Lowy Institute and the
London, Madrid, Moscow, Oslo, Volgograd, Paris, Australian Strategic Policy Institute
Brussels and Nice. Targets have included public •• Information on the terrorism threat published
transport and transport hubs as well as public places by the governments of the countries they intend
frequented by foreigners. European security services to visit, such as the UK’s Terrorism and National
are taking robust measures in response to the Emergencies website and the US Homeland
current threat. An attack in July 2016 in Germany, Security website
involving a radicalised person attacking train •• The US State Department annual terrorism report
commuters with an axe, underscores the ongoing for details of trends in terrorist attacks.
risk of attacks by individuals and small groups.
For business travellers
Rest of the world The Advice for Australian Business Travellers page
•• Groups such as FARC and Shining Path have provides tips on risks for Australian employers and
operated in Colombia and Peru for decades. The individual business travellers to consider as part of
recent ceasefire negotiations between FARC and their routine risk assessment process for short-term
the Colombian Government may lead to a decrease overseas travel for meetings and conferences, longer-
in tensions, but attacks will still occur. Terrorist term deployments overseas and travel to high-threat
attacks occur regularly in Colombia, and we remote locations.
encourage travellers to read the travel advice for The ASIO Business Liaison Unit provides credible,
Colombia to understand the risks of travel. intelligence-backed information on matters which
Credible terrorist threats are may affect the security of Australian businesses in
reflected in the travel advice offshore locations.
If the Australian Government has any specific and
credible information on terrorist attack planning, this For all travellers
will appear in the relevant country-specific advisory at Be a smart traveller. Before heading overseas:
smartraveller.gov.au. We encourage Australians who •• Organise comprehensive travel insurance and
are planning to travel overseas to subscribe to this free check what circumstances and activities are not
service before travelling, so that you stay informed on covered by your policy
the latest risks. Terrorist attacks may occur without •• Register your travel and contact details, so we can
warning and in areas where the risk of terrorist attack contact you in an emergency
has not been previously highlighted. •• Subscribe to this travel advice to receive free email
updates each time it’s reissued
Where to get additional information •• Follow us on Facebook and Twitter.
Travellers can get additional information on the threat
of international terrorism from: Department of Foreign Affairs and Trade (2016).
•• The Australian Government’s National Security Terrorist Threat Worldwide. Retrieved from
website www.smartraveller.gov.au on 24 November 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 9


National Terrorism Threat Advisory System
Australia’s current National Terrorism Threat Level is ‘probable’, according
to this fact sheet advice from the Australian Government

T
he National Terrorism Threat or groups have developed both the Australia. Those radicalised to
Advisory System is a scale of intent and capability to conduct a violent extremism may display
five levels to provide advice terrorist attack in Australia. The behavioural changes, develop new
about the likelihood of an act of public should continue to exercise social networks and associations,
terrorism occurring in Australia: caution and report any suspicious withdraw from previous ones and
When the threat level changes, incidents to the National Security promote an extremist ideology.
the Australian Government prov- Hotline by calling 1800 1234 00. Recent large, coordinated terror-
ides advice on what the threat level Life-threatening situations should ist attacks are concerning and the
means, where the threat is coming be reported to the police by calling small number of Australia-based
from, potential targets and how a Triple Zero (000). ISIL sympathisers and supporters
terrorist act may be carried out. We must maintain vigilance in might be emboldened by the
The National Terrorism Threat the face of an escalating global perceived success of their overseas
Level is regularly reviewed in line terrorist threat that continues to counterparts. Additionally, ISIL
with the security environment and affect Australia. This multifac- will glorify recent attacks, such as
intelligence. eted threat was the reason the those in France and Mali and the
It is important to be aware of the Commonwealth Government took attack on Metrojet Flight 9268, in
current threat level and to report any the unprecedented step of raising propaganda to motivate and inspire
suspicious incidents to the National the national terrorism threat level their Western-based sympathisers
Security Hotline on 1800 1234 00. in September 2014. The factors that and supporters. Elements of some
underpinned that decision persist, of these recent attacks, such as the
Public advice and some have worsened. Those use of firearms and explosives as
The National Terrorism Threat Level who wish to do us harm, some weapons, the capturing of hostages,
for Australia is PROBABLE. Credible located here and some overseas, and the focus on ‘soft’ targets,
intelligence, assessed by our security continue to view Australia as a could be employed in an attack in
agencies indicates that individuals legitimate target. Australia.

Where does the threat What are the likely targets?


In the current environment, come from? Symbols of government and authori-
Australians should go about A small number of people in ties perceived as terrorist adversaries,
their daily business as usual Australia adhere to an interpreta- such as the military, police and
tion of Islam that is selective, violent security agencies, are often targeted
but should exercise caution
and extreme. They are influenced by by terrorists. However, indiscrimi-
and be aware of events extreme messaging from terrorist nate attacks are increasing, and
immediately around them. groups such as the Islamic State of the risk to the general public in
Iraq and the Levant (ISIL) who are Australia remains.
active online spreading their violent Overseas extremists have enc-
ideology and channelling persua- ouraged local sympathisers and
sive propaganda to susceptible, supporters to attack the public
vulnerable and easily influenced anywhere – attacks and plots in
individuals. Europe and Africa in late 2015
The radicalisation and recruit- targeting the public underscore
ment of Australians is increasing. this threat. Attacks of this nature
Violent extremists are reaching out are designed to cause injury or
to those willing to listen and enc- death and are aimed at disrupting
ouraging them either to join ISIL our lives and damaging the nation
or conduct attacks in its name. In by causing fear. This is why it is
some cases specific directions have important for the public to maintain
been provided to conduct acts of a level of awareness and to report
terrorism here. Others, including any suspicious activity immediately
those that are not in direct contact to authorities.
with violent extremists overseas,
may be influenced by propaganda How would an attack occur?
to undertake acts of terrorism in The most likely form for a terrorist

10 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


NATIONAL TERRORISM THREAT LEVELS
Certain
A terrorist attack will soon occur/is underway. CERTAIN
Expected
Credible, specific intelligence indicates a current intention, capability and plan to attack.
A terrorist attack is expected. EXPECTED
Probable
Credible intelligence indicates a subject is the target of terrorists with an intention and PROBABLE
capability to conduct an attack. A terrorist attack is probable and may occur.
Possible
Credible intelligence indicates that while a subject is a possible target of terrorists, there is POSSIBLE
limited intent or capability to conduct an attack. A terrorist attack is possible.
Not expected NOT EXPECTED
There is no indication of any terrorist threat. A terrorist attack is not expected.
Source: Department of the Prime Minister and Cabinet, Review of Australia’s Counter-Terrorism Machinery.

attack in Australia would be an Our response •• Australian Capital Territory


attack by an individual or a small Federal, state and territory gov- – ACT Policing, www.police.
group of like-minded individuals. ernments continue to focus on act.gov.au/crime-and-safety/
However, a larger, more coordinated strengthening preventative efforts national-security
attack cannot be ruled out. Threats in partnership with industry and •• New South Wales – SecureNSW,
can develop quickly, moving to an building Australia’s social cohesion, https://direct.secure.nsw.gov.au
act of violence with little preparation together with the community. •• Northern Territory – Northern
or planning. Territory Government, https://
It is highly likely that a terrorist •• Governments are working closely nt.gov.au
attack in Australia would use wea- with communities to prevent •• Queensland – Safeguarding
pons and tactics that are low-cost terrorism, combat terrorist Queensland, www.safeguarding.
and relatively simple, including basic propaganda online and promote qld.gov.au
weapons, explosives and/or firearms. early intervention programmes. •• South Australia – South Australia
These are commonly used in terr- •• Federal, state and territory Police, www.police.sa.gov.au
orist attacks overseas and featured in authorities have well-tested •• Tasmania – TasALERT,
the September 2014 attack on police cooperative arrangements www.alert.tas.gov.au
officers in Melbourne, the December in place and have adopted •• Victoria – Victoria Police,
2014 Martin Place siege in Sydney appropriate security measures. www.police.vic.gov.au
and the fatal shooting outside New •• Police and security agencies •• Western Australia –Western
South Wales Police headquarters in liaise closely with critical Australia Police, www.police.
Parramatta in October 2015. infrastructure owners and wa.gov.au
operators.
•• Basic weapons are readily SeetheFrequentlyAskedQuestions
available, everyday objects In the current environment, Aus- page for answers to some general
that do not require specialist tralians should go about their daily questions about national security.
skills. Terrorists have used business as usual but should exercise
basic weapons such as knives, caution and be aware of events © Commonwealth of Australia 2015.
machetes and even cars to immediately around them.
conduct lethal attacks. If you see, hear or become aware Australian National Security.
•• Explosives remain a favoured of something suspicious or unusual, National Terrorism Threat Advisory System.
terrorist weapon globally. call the National Security Hotline on Retrieved from www.nationalsecurity.gov.au
on 17 February 2016.
Homemade explosives can be 1800 1234 00. Every call is important
manufactured from readily and could prevent a terrorist attack
available materials. Improvised in Australia.
explosive devices do not need to
be large to be effective and can Local advice
be easily concealed. See the following websites for
•• Firearms can be sourced through information specific to your state/
legal and illicit channels. territory:

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 11


SECURITY AND YOUR COMMUNITY:
FREQUENTLY ASKED QUESTIONS
FAQs on the terrorism threat from the Australian National Security website

Is a terrorist attack likely in Australia? sophisticated and well tested.

Y
es, we assess that a terrorist attack in Australia The government has recently introduced new national
is PROBABLE. We know about a small number security legislation.
of individuals in Australia and abroad, who Australia has a National Counter-Terrorism Plan
want to cause us harm. We know that some will or are in place. It details how Australian, state and territory
being seduced by the extremist propaganda of ISIL. governments and national security agencies will work
Unfortunately we fear some individuals will probably together to detect, prevent and respond to terrorism.
seek to undertake acts of terror here. Australia’s Counter-Terrorism Strategy outlines the
current terrorist threat that Australia is facing, and what
What does the threat level mean for me? our governments are doing to counter it. It focusses on
Unless government authorities tell you otherwise, five core elements: challenging violent extremist ideolo-
there is no need to change how you go about your daily gies, stopping people from becoming terrorists, shaping
business. But it is a reminder of the environment we are the global environment to counter terrorism, disrupting
now in and the threat we face. It is important to keep terrorist activity within Australia and having effective
yourself aware of the advice on the current level of threat responses and recovery should an attack occur.
and keep up to date with advice from local authorities. A full list of national security agencies and their
You should continue to exercise caution and report responsibilities is available at www.nationalsecurity.
any suspicious incidents to the National Security Hotline gov.au/WhatAustraliaisdoing/Pages/NationalSecurity
on 1800 1234 00 or in an emergency, call 000. Agencies.aspx

Is the threat level ever likely to go down? How will I be kept informed about
The National Terrorism Threat Level is set from intel- Australia’s national security?
ligence. If the level of threat is assessed as being lower, The Australian Government will keep all Australians
the Government will announce the change. informed about what is being done to protect Australia
However, this is unlikely to happen anytime soon. through public statements and this website. In an emer-
Unfortunately we are now living in a heightened threat gency situation, follow the instructions of authorities.
environment that is expected to last for some time. Any change to the National Terrorism Threat Level
will be announced by the Australian Government based
What should we do if the threat level is raised again? on advice from the Director-General of ASIO, with
It’s important to remember that every situation is going advice to the public about what it means for them.
to be unique. Information on the current level, including public
If the level changes you will be provided with advice advice on the nature of the threat and what it means
what the threat level means, where the threat is coming for all Australians is available on the National Terrorism
from, potential targets and the means by which a Threat Advisory System page on the website.
terrorist act may be perpetrated.
Should I stay away from sporting and music
What is being done to protect Australia events or change my domestic holiday plans?
from terrorism? There is no reason for any of us to stay away from public
Ensuring a safe and secure Australia is the first priority places or change our normal routines or domestic holiday
for all Australian governments. plans. Australian governments work closely with police
A range of measures have been put in place to reduce and event organisers across Australia so the community
the threat of terrorism in Australia but a significant can enjoy themselves in a safe and secure environment.
threat remains. It is essential that we do not allow the threat of
Our security and law enforcement agencies are terrorism to change the way of life we value so highly.
engaged in disruption efforts to prevent or mitigate
against attacks but we have to be prepared for the fact Is it safe to travel overseas? Are other countries
that we might not detect all threats in time. experiencing an increased threat?
The Australian Government, law enforcement and The situation in Syria and Iraq has increased global con-
intelligence agencies, together with our international cern about terrorism, but this should not stop people from
partners are actively working to counter-terrorism travelling for work or holidays where it is safe to do so.
domestically and internationally. For the latest international travel advice and to register
Australia’s current counter-terrorism capabilities are your travel plans, go to the smartraveller.gov.au website.

12 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


What is going to happen at airports? is that the likelihood of this kind of terrorist attack in
Is it safe to fly on a plane? Australia is low.
The current threat level means that you may continue Health authorities and emergency services have
to see increased security at airports and other trans- detailed plans in place to deal with such a situation and
port hubs. Travellers should be mindful of this when treat those affected.
making plans. In a chemical, biological or radiological incident, the
most important thing to remember is to minimise your
Am I going to see more physical security in my exposure, then watch your television or listen to your
day to day life? radio and wait for emergency services to tell you what
The current threat level means that in some places you to do. Stockpiles of antibiotics, vaccines, anti-viral drugs
might continue see a heightened level of security. These and chemical antidotes are in place.
measures are designed to protect the public. The Australian Government Department of Health
has health advice and more information about Aust-
I have a small business. Where can I get ralia’s preparations for health emergencies.
more information?
More information about security and your business What can I do to protect myself and others at work?
is available from the Information for business page Make sure you are familiar with the emergency and
which is available at www.nationalsecurity.gov.au/ evacuation plans for your workplace. If you are unsure,
Informationforbusiness/Pages/default.aspx ask your supervisor.
Attend an accredited first aid course.
What can we do as a community? If you run a business or manage a large building,
This is an opportunity for us to live safe together as review your security measures. You should also review
a community. All Australians have a role to play in your emergency and evacuation plans. Rehearse them,
making sure that Australia continues to be a safe place update if necessary, and make sure every member of
to live and visit. Visit the Living Safe Together website your staff knows what to do.
(www.livingsafetogether.gov.au) for more information Keep a careful check on garages and underground
about communities. car parks so that you know whose vehicles are on
your premises.
What if I know or see something and I If you have security cameras, make sure they are
want to tell authorities about it? working properly, check that the time and date are
The Australian community is the most important part- correct, and retain the recordings in case they might be
ner for governments in countering terrorism. of use to police in the future.
Members of the public can assist authorities to keep The National Guidelines for the Protection of Places
Australia safe by reporting suspicious behaviour or of Mass Gatherings from Terrorism and Active Shooter
activity to the National Security Hotline on 1800 123 400. Guidelines for Places of Mass Gathering are useful
You can remain anonymous. resources for owners and operators of places of mass
In an emergency you should call 000. gathering.

I work in the industry sector, is there anything What if my children become concerned
I should do? or anxious about terrorism?
The Australian Government has published the National Talk with your children about what is happening and
Guidelines for the Protection of Critical Infrastructure from what is being done to protect them. Encourage them to
Terrorism, including a guide of security measures to say how they feel.
consider in relation to changes in the security situation, Be honest about things being discussed in the media
which should be used as a basis for your security plans. and in your community.
If your organisation has been identified as critical If anyone in your family becomes anxious to a point
infrastructure or a place of mass gathering in your state where it starts interfering with daily life, consult a
or territory, you should ensure that your security plans health professional.
are up to date and that the counter-terrorism unit within
your police service has your current contact details How many reports have been made to
(including for after hours). the National Security Hotline?
Organisations in the aviation, maritime and offshore The National Security Hotline has received over 200,000
oil and gas sectors regulated by the Australian Govern- reports since it was established in December 2002. For
ment Department of Infrastructure and Regional monthly report numbers since July 2014, see the National
Development will be provided with additional advice. Security Hotline statistics page on the website.
© Commonwealth of Australia 2015.
How likely is a chemical, biological or
radiological attack by terrorists? Australian National Security. Frequently asked questions.
The current advice from official intelligence services Retrieved from www.nationalsecurity.gov.au on 22 February 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 13


Australians have little to fear from
terrorism at home – here’s why
Many Australians are fearful of a terrorist attack on home soil, however
the reality is less alarming, writes Greg Austin

A
ccording to an ANUpoll, more Bali terrorist attacks in which 202 Mother-of-three Katrina Dawson
than half of the country’s people, many of them Australian, and Lindt cafe manager Tori Johnson
adults are concerned Australia were killed. Since Bali, terrorist were killed in the Martin Place siege
will be a target for terrorism at home attacks overseas have claimed the in December 2014.
and strongly believe the government lives of more than 110 Australians. The most serious terrorist plot
needs to introduce greater preven- Even taking the overseas deaths in Australian history dates back
tive measures to combat it. But the into account, Australians can afford to 2005, more than a decade ago,
reality is less alarming. to feel more secure at home. Police referred to most commonly as
More Australians have died at say they were able to successfully Operation Pendennis, the name of
the hands of police (lawfully or foil 11 terrorist plots and four terror the joint police and ASIO operation
unlawfully) in ten years (50 at least attacks against the Australian public that prevented any attacks.
from 2006 to 2015) or from domestic in the last two years. Australian According to an academic study,
violence in just two years (more security services, supported by the 22 men were charged with terrorism
than 318 in 2014 and 2015) than from public and community groups, have offences for planning or helping
terrorist attacks in Australia in the been very successful in monitoring co-ordinate attacks in Melbourne
last 20 years. the threats. According to the govern- and Sydney. Of these, 18 were finally
Although Australia’s terrorism ment’s 2015 review, the number of convicted. The success by our security
threat level is set at probable, the people in the country who have services in thwarting these attacks
likelihood of an individual being been prepared to commit terrorist may have deterred similar plots.
killed or wounded from a terrorist acts here remains low. As my grandchildren left our
attack in this country is extremely The review found there had hotel on Bastille Day in France this
low. Terrorist attacks in Australia only been two terrorist attacks on year for the fireworks, there was no
have claimed the lives of only three Australian soil since 2001. NSW denying I felt some concern about a
victims in the last two decades. police accountant Curtis Cheng was possible terrorist attack. Luckily, the
Australian fears are necessarily killed by a teenager allegedly vowing kids went to the Eiffel Tower, and
shaped by memories of the 2002 allegiance to Islamic State in 2015. not to the Promenade des Anglais
in Nice where 84 people were killed
Terrorist attacks in Australia have claimed the lives of and more than 100 injured.
only three victims in the last two decades. I remain concerned about such
attacks but am not afraid enough to
consider preventing loved ones from
travelling in Western countries.
Respondents to the 2016 ANUpoll
may have felt more fearful of an
attack than usual because of the
public debate that was circulating
at the time. The poll was conducted
during and just after the last federal
election, in which Pauline Hanson
was propagandising a link between
all Muslims and terrorism.
The ANUpoll was also conducted
during the coroner’s inquest into the
Lindt Café siege, and just after the
Orlando massacre in June. It also
closely followed the prime minister’s
invitation of Muslim leaders to
Kirribilli House, where Malcolm
Turnbull mentioned the connection
between the Muslim community
and defence against terrorism.

14 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Public opinion in Australia has as 2006, two Australian scholars It suggests misleading ideas become
an exaggerated view of the terrorist put forward a “thought contagion commonly held beliefs after they are
threat inside the country. As early theory” to explain this phenomenon. conveyed to many people.
The anxiety is often unnecess-
arily fuelled by politicians and
Australians want tougher journalists. One striking example
was a warning from The Australian’s
action against terrorism Greg Sheridan in November 2015
that the Paris attacks can be viewed
The ANUpoll, ‘Attitudes to National Security: Balancing Safety and as part of a series of threats that
Privacy’, has found Australians believe the government could do more
may lead to the end of Western
to prevent a terrorist attack in Australia, but also have concerns that
civilisation.
Muslims are being singled out for increased surveillance and monitoring.
But the over-anxiety about terr-

T
he poll found a significant majority (71%) are concerned about the possible orist attacks in Australia conforms
rise of Islamist extremism in Australia, but 70% also believe Muslims in to a more longstanding phenom-
Australia should not be subject to additional scrutiny based on their religion. enon of Australian insecurity
The Australian National University poll found strong support for the federal
and exaggeration of international
government’s strict border protection controls, retention of telecommunications
metadata, revoking citizenship for foreign fighters with dual nationalities, and for
threats in almost all quarters.
bans on Australians travelling to conflict areas. However, a majority (55%) were It also comes from the exagger-
not concerned about being a victim or having a family member as a victim of a ated fear of becoming a victim of
future terrorist attack in Australia, while 45% were concerned. domestic crime.
In this environment of super-
Key findings charged public anxiety about
hh 56% of poll respondents believe the government could do more to prevent
terrorist threats on Australian soil,
terrorist attacks; 36% believe the government is doing all it can; 8% believe
the government has done too much
opinion leaders in politics, the
hh 67% support retention of communications metadata media and academia have a respon-
hh 59% believe counter-terrorism policies single out Muslims for surveillance sibility to not inflame them. The
and monitoring, and 46% of those say they are bothered by that ANUpoll might have framed some
hh 80% approve or strongly approve current border control measures as needed additional questions to speak to
to protect Australia from extremism and terrorism the excellent record of the security
hh 69% say Australia should prevent citizens from participating as fighters in services at home and the relative
overseas conflicts safety they provide.
hh 85% support removing citizenship from dual nationals involved in terrorist
activities overseas; but most support the courts having the power to remove Greg Austin is Professor, Australian
citizenship rather than the Immigration Minister Centre for Cyber Security, UNSW,
hh 71% are either concerned or very concerned about the possible rise of Islamic Australia.
extremism in Australia, with personal concerns easing as education levels rise
hh 70% believe Muslims in Australia should not be subject to additional scrutiny
due to their religion.
The ANUpoll is a result of a national random telephone survey
of 1,200 people interviewed between late June and early July 2016. Austin, G (18 October 2016). Australians have
Source: Australian National University, Australians want tougher action against little to fear from terrorism at home – here’s why.
terrorism – ANUpoll (Media release, 10 October 2016), www.anu.edu.au Retrieved from http://theconversation.com
on 17 November 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 15


CHAPTER 2
Counter-terrorism laws and strategies

Australia’s Counter-Terrorism Strategy:


strengthening our resilience
Executive summary from a report by the
Council of Australian Governments

I
n September 2014, for the first time, Australia’s
National Terrorism Public Alert level was raised to
High. This reflected the judgement of the Australian
Security Intelligence Organisation (ASID) that a terr-
orist attack was likely. The heightened threat level is
likely to endure.
Australian governments are proactively dealing
with the threat. We are working with our international
partners and with the Australian community to lower
the risk of a terrorist attack and strengthen our ability
to respond to, and recover from, any attack.
The purpose of releasing this Strategy is to provide
information to the community on the threat Australia
faces and what we are doing to counter it. Import-
antly, it highlights the community’s role in preventing,
preparing for, responding to and recovering from a
terrorist attack. retain the intent and capability to mount major attacks.
This Strategy sets out the framework for Australia’s ISlL, in particular, exerts a direct influence in
counter-terrorism arrangements. It situates the Australia through its aggressive promotion of violent
current terrorism threat within the global context and extremism. This group’s violent ideology, persuasive
articulates how we are countering it. It sits above and propaganda, and its grooming of young people online
is complemented by the National Counter-Terrorism is directly responsible for the radicalisation to violent
Plan; an important resource that outlines governance extremism of a significant number of individuals in our
and jurisdictional arrangements and operational community. As a direct flow-on result, there is now a
responsibilities for preventing, preparing, responding higher risk of attacks by individuals or by small groups
to and recovering from domestic terrorist attacks. than ever before.
Violent extremist influences in Australia will be
Our Strategy is based on the following principles: exacerbated by foreign fighters seeking to return from
•• Protecting lives is the absolute priority conflict zones in the Middle East. Some of these foreign
•• Governments and the community must face the fighters will seek to return with the skills, experience
challenge of terrorism together and a predisposition to violent action that will make
•• Terrorist acts are crimes to be dealt with through them a significant risk to the community.
the criminal justice system. Terrorism based on other ideological, religious, or
political beliefs – such as right wing or left wing extrem-
Terrorism and Australia ists – is also of concern, though it does not represent
Globally, ISIL, AQ and associated groups represent the the same magnitude of threat as that posed by violent
most significant terrorist threat. extremists claiming to act in the name of Islam.
These groups are motivated by a selective, violent and
extreme interpretation of Islam. Such an interpretation Resilience of the Australian community
is alien to the overwhelming majority of Muslims. The Australian community’s resilience is important to
Though ISlL is the most threatening manifestation everything we do to counter terrorism. Building and
of this terrorist threat, AQ and some associated groups maintaining our resilience allows us to push back against

16 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


terrorists’ attempts to intimidate us and undermine or Iraq, and ways they can find a sense of meaning and
social cohesion. belonging in Australia, without resorting to violence.
Importantly, the information we provide shows
Australia’s Counter-Terrorism Strategy the horror of living, killing and dying in the conflict
Australia’s Counter-Terrorism Strategy is based on zones, including exposing the horrific toll on local,
partnerships between all levels of government, com- overwhelmingly Muslim, populations.
munities and the private sector. It is focussed on We also seek to promote the values and ideas which
prevention as a first line of defence against terrorism. underpin our society, ideas such as equality, respect,
Our actions are informed by thorough analysis and individual freedoms, democracy and the rule of law.
assessments of violent extremism here and abroad. The exact messages conveying these themes are
best developed and delivered by communities for
This Strategy involves five core elements. their own members, though governments can help to
facilitate them.
1. Challenging violent extremist ideologies
Australia’s task to constrain the terrorist threat is fun- 2. Stopping people from becoming terrorists
damentally about limiting the spread and influence of The most effective defence against terrorism is to pre-
violent extremist ideas. vent people from becoming terrorists in the first place.
Governments are working with communities to To do this we work closely with the community:
counter violent extremist propaganda with carefully families, friends and community members are often in
targeted messages. Our messages show people there the best position to identify individuals who are at risk
are ways they can help improve the situation in Syria of radicalisation and help steer them away from violent
extremism.
Our aim is to prevent extremists from exploiting
National security: vulnerable Australians and robbing them of their
futures.
what Australia is doing
hh National Security Hotline – is the single point of 3. Shaping the global environment
contact for the public to report possible signs of terrorism. Our efforts to counter terrorism in Australia are comple-
www.nationalsecurity.gov.au/WhatAustraliaisdoing/ mented by coordinated international action to make
Pages/TheNationalSecurityHotline.aspx the global environment less conducive to terrorism.
hh Laws to combat terrorism – Australia has an Australia works with international partners, including
extensive range of legislation around counter- through the United Nations, to challenge terrorism.
terrorism, national security and related offences. We also engage with a wide number of partner coun-
www.nationalsecurity.gov.au/WhatAustraliaisdoing/ tries to build capacity and capability, undertake joint
Pages/Laws-to-combat-terrorism.aspx operations, and exchange information to assist partner
hh Australia-New Zealand Counter-Terrorism governments in detecting, monitoring and responding
Committee – is made up of representatives from to terrorism.
the Australian, state and territory governments to Australia may also contribute to international
strengthen cooperation, collaboration and build military efforts to destroy or degrade major terrorist
nation-wide capability to counter terrorism. capabilities. Over the last decade, elements of the
www.nationalsecurity.gov.au/WhatAustraliaisdoing/ Australian Defence Force (ADF) have been deployed in
Pages/Australia-New-Zealand-Counter-Terrorism- Afghanistan and Iraq for this purpose.
Committee.aspx
hh National security agencies – a range of government 4. Disrupting terrorist activity within Australia
agencies contribute to protecting Australia’s national Our law enforcement and intelligence agencies are
security. well-equipped to disrupt terrorist activity. They have
www.nationalsecurity.gov.au/WhatAustraliaisdoing/ a good history of disrupting numerous terrorist plots.
Pages/NationalSecurityAgencies.aspx
low-capability and limited-preparation attacks such
hh States and territories – find out more on their roles as knife attacks present a challenge to police and
and responses to counter-terrorism incidents and links intelligence agencies because they involve little or no
to agencies. lead time, making them difficult to detect. Given the
www.nationalsecurity.gov.au/WhatAustraliaisdoing/
absolute focus on saving lives, agencies will prioritise
Pages/StatesAndTerritories.aspx
early disruption of a planned attack over waiting to
hh Declared area offence – information about the gather further evidence for a successful prosecution.
offence of entering, or remaining in, a declared area in Early disruption is also used to stop activities that
a foreign country where a listed terrorist organisation support or facilitate terrorism, but which may fall
is engaging in a hostile activity in that area.
short of specific attack planning. There are a range
www.nationalsecurity.gov.au/WhatAustraliaisdoing/
Pages/DeclaredAreaOffence.aspx of methods that can be used to send a message to
individuals that their activities have attracted the

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 17


Countering violent extremism
A statement from the Australian Government Attorney-General’s Department

T
he Australian Government is committed to preventing
violent extremism – that is, the use or support of violence
to achieve ideological, religious or political goals.
Countering violent extremism is a shared effort between all
Australian governments. The objective of the countering violent
extremism programme is to combat the threat posed by home-grown
terrorism and to discourage Australians from travelling overseas to
participate in conflicts. The Attorney-General’s Department coordinates
this comprehensive national approach.
Australian governments and communities work together to build
resistance to all forms of violent extremism, whether politically, religiously or
racially motivated. Every day, federal, state and territory government agencies
are engaging with communities and forming vital partnerships. The Australian
Government’s approach comprises four complementary streams of activity.
Work across these four tiers is underway, and includes:

Building strength in diversity and social participation


hh The best way to counter violent extremism is to prevent radicalisation emerging as an issue by addressing the societal
drivers that can led to disengagement and isolation.
hh The government funds settlement and multicultural community initiatives, and other social policy programmes to
enhance Australia’s social cohesion by supporting community harmony, migrant integration and strengthening economic
participation.
hh The Living Safe Together website provides information and resources to help the public understand, identify and address
radicalisation to violent extremism.

Targeted work with vulnerable communities and institutions


hh Support for communities to help them identify and prevent people from moving down the path of radicalisation to violence.
hh Development of community information resources and training packages, including tailored packages for educators.
hh Work with state and territory governments to develop and implement programmes to rehabilitate people imprisoned for
terrorism-related offences, as well as prevent the radicalisation of other prisoners.

Addressing terrorist propaganda online


hh Addressing online radicalisation and challenging terrorist propaganda by limiting its appeal, reducing access to extremist
material online and empowering community voices to combat extremist narratives.

Diversion and deradicalisation


hh The delivery of early intervention programmes to help people move away from violent ideologies and reconnect with
their communities.
hh Development of a Directory of CVE Intervention Services for government agencies to easily connect people in need with
community-based organisations.
hh The Living Safe Together Grants Programme is assisting community-based organisations to build their capacity to deliver
services and apply to be included on the directory.

Supporting activities
hh International engagement for collaboration and information sharing on best practice approaches to this common challenge.
hh Engagement with academia to leverage knowledge and expertise.

For more information on how communities and governments are working together to counter violent extremism, visit the
Living Safe Together website, www.livingsafetogether.gov.au
© Commonwealth of Australia 2015.
Attorney-General's Department. Countering violent extremism. Retrieved from www.ag.gov.au on 17 February 2016.

attention of authorities in an attempt to dissuade low-preparation to coordinated multi-jurisdiction


them from further action. mass-casualty attacks.
States and territories lead the response to any attacks
5. Effective response and recovery within their jurisdictions. They can request assistance
If an attack does occur, we have robust arrangements from other states, territories or the Commonwealth
in place to respond to any act of terrorism, from as required. States and territories may also ask for the

18 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


What Australia is doing: current initiatives
National Counter-Terrorism Plan Data retention
The National Counter-Terrorism Plan is maintained by the The Australian Government is committed to providing
Australia-New Zealand Counter-Terrorism Committee. It our law enforcement and security agencies with the
is the primary public document on Australia’s national tools they need to keep our community safe by requiring
counter-terrorism policy and arrangements. It outlines the the telecommunications industry to retain a limited
responsibilities, authorities and the mechanisms to prevent set of metadata for two years. Find out more on the
acts of terrorism within Australia and to manage the Attorney-General’s Department website (www.ag.gov.au/
consequences if they do occur. Visit the Publications page RightsAndProtections/CyberSecurity/Pages/default.aspx).
(www.nationalsecurity.gov.au/Media-and-publications/
Publications/Pages/default.aspx) to download a copy. Transport and critical infrastructure
Transport systems continue to be attractive targets for
Countering violent extremism terrorists seeking to inflict mass casualties, economic
The Australian Government is working with communities damage, instil fear and create spectacular media imagery.
to build resilience to violent extremism – that is, the use The Australian Government regulates preventive security
or support of violence to achieve ideological, religious or planning in the aviation, maritime, air cargo supply chain
political goals. Visit the Living Safe Together website and offshore oil and gas transport sectors. In addition, the
(www.livingsafetogether.gov.au) for more information. government ensures that aviation and maritime transport
security activities are carried out in accordance with
Cyber security Australia’s international obligations. Visit the Department of
Cyber security is one of the Australian Government’s Infrastructure and Regional Development website (https://
highest national security priorities. CERT Australia is infrastructure.gov.au/security) for more information.
the single point of contact for cyber security issues The Trusted Information Sharing Network (TISN)
affecting major Australian businesses. The Australian for Critical Infrastructure Resilience website provides
Signals Directorate (ASD, formerly DSD) provides foreign an environment where business and government can
signals intelligence to the Australian Defence Force and share vital information on security issues relevant to the
Australian Government to support military and strategic protection of Australia’s critical infrastructure – power,
decision-making. water, health, communication systems and banking – and
The government launched its Cyber Security Strategy in the continuity of these essential services in the event of
2009 with the aim to promote a secure, resilient and trusted disasters. Visit the TISN website (www.tisn.gov.au/Pages/
electronic operating environment that supports Australia’s default.aspx) for more information.
national security and maximises the benefits of the digital
economy. To find out more about cyber security policy and © Commonwealth of Australia 2015.
read a copy of the strategy, visit the Attorney-General’s
Department website (www.ag.gov.au/RightsAndProtections/ Australian National Security. What Australia is doing.
CyberSecurity/Pages/default.aspx). Retrieved from www.nationalsecurity.gov.au on 22 February 2016.

ADF to provide specialist skills or equipment to assist Governance and accountability


in response and recovery. State and territory police and Countering terrorism is a responsibility shared by
the Australian Federal Police (AFP) are highly trained all Australian governments, the community and the
and well-equipped to respond to a terrorist attack. Our private sector.
police are skilled in investigation, negotiation, tactical The dynamic nature of the terrorist threat, and
response, defusing explosives, crisis management the rapid growth of home-grown and lone actor
and hostage recovery, enabling effective responses to elements, demands rigorous monitoring and assess-
terrorist attacks across all jurisdictions. Our emergency ment to ensure our arrangements remain properly
response and health services are also well-prepared to targeted and implemented. To this end, Australia’s
respond to any terrorist incident. national counter-terrorism coordinating body, the
Australian governments work closely with critical Australia-New Zealand Counter-Terrorism Committee
infrastructure and key service providers, including (ANZCTC), meets regularly to monitor and assess
electricity, gas, water and transport utilities, to reduce the effectiveness of counter-terrorism arrangements.
the impact of any terrorist attack on such facilities and The ANACTC reports to the Council of Australian
services. Governments (COAG) annually.
In the event of a terrorist attack, we will work calmly
and efficiently to bring the perpetrators to justice and to © Commonwealth of Australia 2015.
ensure that we can all return to our everyday activities
with confidence. A range of government agencies and Council of Australian Governments (2015). Australia’s Counter-
community organisations are prepared to assist the Terrorism Strategy: Strengthening Our Resilience 2015, pp. v-vii.
community in an effective recovery. Retrieved from www.nationalsecurity.gov.au on 17 February 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 19


National security agencies
Australia’s response to terrorism relies on strong and cooperative relationships between the federal
government and the states and territories, according to the Australian National Security website

O
ur national security agencies have well-defined responsibilities and the authority to detect, prevent and respond to
acts of terrorism in Australia. Terrorist incidents involving Australian interests outside Australia are in the first instance
dealt with by the Department of Foreign Affairs and Trade. The roles and responsibilities of Australia’s national
security agencies and authorities are listed below.
The Australian Government: Border Protection Command provides security for
hh Maintains counter-terrorism capabilities and national coor- Australia’s offshore maritime areas. Combining the
dination arrangements within its agencies (listed below) resources and expertise of the Australian Customs Service
hh Maintains national policies, legislation and plans and the Department of Defence, and working with officers
hh Determines Australian Government prevention strategies from the Australian Fisheries Management Authority,
and operational responses to threats the Australian Quarantine and Inspection Service, and
hh Supports the states and territories in responding to other Australian, state and territory agencies, it delivers
terrorist situations in their jurisdictions a coordinated national approach to Australia’s offshore
hh Can, where the nature of the incident warrants it and maritime security.
with the agreement of the affected states and territories,
declare a national terrorist situation. In such a situation The Department of Foreign Affairs and Trade (DFAT)
the Australian Government would determine policies and aims to advance the interests of Australia and Australians
broad strategies in close consultation with affected states internationally. It works with Australia’s allies and partners
or territories. to confront terrorism and to enhance international counter-
terrorism cooperation. It provides advice about specific
The Prime Minister takes the lead role in Australian security threats abroad for people travelling overseas and
Government counter-terrorism policy coordination. provides consular services to Australians living abroad. It
also provides information in relation to the protection of
The Attorney-General, supported by the National Security foreign dignitaries.
Committee of Cabinet and other ministers, is responsible for
operational coordination on national security issues. The Department of Health leads a whole-of-government
approach to strengthening Australia’s readiness for disease
The Attorney-General’s Department coordinates national threats, national health emergencies and other large-scale
security and crisis management arrangements and provides health incidents.
legislative advice.
The Department of Immigration and Border Protection
The Australian Security Intelligence Organisation maintains the Movement Alert List and enforces Australia’s
(ASIO) is Australia’s national security intelligence service. visa regime. It is also actively engaged in a number of
Its main role is to gather information and produce international data-accessing initiatives aimed at preventing
intelligence so that it can warn the government about the movement of terrorists or terrorist groups and has
activities or situations that might endanger Australia’s responsibility for border control.
national security.
The Department of the Prime Minister and Cabinet
The Australian Customs and Border Protection Service coordinates Australian Government counter-terrorism
manages the security and integrity of Australia’s borders. policy in collaboration with intelligence agencies and the
It works closely with other government and international states and territories. It also provides the secretariat for
agencies to detect and deter unlawful movement of goods the Secretaries Committee on National Security and the
and people across the border. National Security Committee of Cabinet. It co-chairs and
provides the secretariat for the Australia-New Zealand
The Australian Defence Force maintains capabilities that
Counter-Terrorism Committee (ANZCTC) and advises the
can assist civil authorities in emergencies.
Prime Minister on matters related to counter-terrorism.
The Australian Federal Police (AFP) investigates national
The Department of Infrastructure and Regional
terrorist offences, provides overseas liaison and protective
Development regulates the security of airports, airlines,
services and performs a state policing function in the ACT.
sea ports and other forms of transport, with state and
The AFP Protective Service provides physical protection
territory authorities.
services in relation to foreign embassies and certain
government facilities, and also counter-terrorism first The Office of National Assessments assesses and
response at major airports. analyses international political, strategic and economic
developments for the Prime Minister and senior ministers in
The Australian Secret Intelligence Service (ASIS) is
the National Security Committee of Cabinet.
Australia’s overseas secret intelligence collection agency. Its
primary goal is to obtain and distribute secret intelligence © Commonwealth of Australia 2015.
about the capabilities, intentions and activities of individuals
or organisations outside Australia, which may impact on Australian National Security. National security agencies.
Australia’s interests and the wellbeing of Australian citizens. Retrieved from www.nationalsecurity.gov.au on 15 February 2016.

20 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Australian national security: what I can do
Report suspicious behaviour and know what to do in an emergency, advises the
Australian Government in this national security fact sheet

REPORT SUSPICIOUS buy accommodation is often suspi- a. Ask if anyone owns it


BEHAVIOUR cious. In the UK, a rented garage b. If no one does, don’t touch it
was turned into a bomb factory. c. Alert others to keep away

S
mall pieces of information A member of the public reported d. If in a shopping mall or
from members of the public strange comings and goings of building, contact security
can help keep Australia safe men wearing gloves, which led to e. Or call local police or the
from terrorism. Police and security the arrest of terrorists who had National Security Hotline on
agencies are working hard but already attacked Heathrow Airport 1800 1234 00.
you could help them complete three times.
the picture. If you see anything KNOW WHAT TO DO IN
suspicious call the 24-hour National Unusual purchases of large
quantities of fertiliser,
AN EMERGENCY
Security Hotline on 1800 1234
00. Trained operators take every chemicals or explosives Be prepared
call seriously and you can remain Fertiliser is a widely available pro-
Preparing for terrorism should be
anonymous. duct that has been used in many
approached like any emergency such
terrorist bombs. In 1995 a bomb in
as fire or flooding. This is known
Some things to look out for Oklahoma City killed 168 people.
as the ‘all hazards’ approach. A few
Terrorists rely on surprise, so we One of the people involved was
basic, common sense measures are
cannot predict every possible situ- arrested following the discovery of a
outlined below, which you may wish
ation. However, local and overseas receipt for nearly a tonne of fertiliser
to put in place.
experience has given us some poss- that was used to make the bomb.
ible warning signs to look out for. Develop an emergency plan
A lifestyle that doesn’t add up Decide who in your household will
Unusual videotaping or photo- While planning an attack, terrorists do what in an emergency and make
graphy of official buildings or may lead lives that appear unusual sure everyone knows his or her
other critical infrastructure or suspicious. Before the 11 role. For example, who will check
Videotaping is one of the ways September 2001 attacks, terrorists on elderly neighbours or pick up
terrorists gather information in the US undertook flight training children from school?
about a target. In 2001, a major but weren’t interested in learning
terrorist plot in Singapore was how to take off or land. The leader Ask someone to be your
averted when videotapes of build- of that group also paid cash for key contact
ings to be attacked, including the many large purchases such as the Choose an out-of-town friend or
Australian High Commission, were flight training, accommodation, relative who is prepared to be a
discovered. vehicles and air tickets. point of contact if the members of
your household are separated in
Suspicious vehicles near significant False or multiple identities an emergency. Make sure everyone
buildings or in busy public places Terrorists frequently use stolen or (including your key contact) has a
Terrorists use vehicles for many fake documents, including pass- full list of your contact details.
different purposes, from surveil- ports and driver’s licences. They can
lance to planting bombs, as in Bali also have several identities and may Agree on a meeting place
in 2002. Vehicles may be parked for give conflicting details to those they Decide where your group will
an unusually long time, sometimes come into contact with. Overseas, meet in the event of an incident
in no-parking areas. Explosives can alert bank employees noticed a that makes it impossible for you
be heavy, so cars and vans may sit series of unusual transactions and to go home.
abnormally low on their suspension. identified an account that had Know your home
They may be out of registration, or been opened in a false name. They In some emergencies you may need
have false or missing number plates. reported it to authorities, who to turn off your electricity, water or
Overseas, a terrorist attack was uncovered links to a terrorist group. gas. Make a note of where the main
foiled after police became suspicious switches and valves are located.
of a car with front and rear number Unattended bags
plates that didn’t match. If you see an unattended package Find out about your local
or bag in a public place, with no emergency services
Suspicious accommodation needs apparent reason for it being there, Record the numbers of your local
The way terrorists use, rent and here’s what to do: police, fire, ambulance and council,

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 21


and your State Emergency Service, calls unless the situation is •• Use the emergency exit to get
together with gas and electricity life-threatening, to avoid out of the building as quickly
suppliers. overloading phone lines. and safely as possible – do not
•• Use a landline to call essential use the lift.
Assemble an emergency kit contacts if mobile networks are •• Check doors before opening
Prepare an emergency kit and keep it down. them – if they feel hot there
where you can find it easily. It should •• Make sure pets are safe and may be fire on the other side.
include a torch, a battery-operated have food and water.
radio, a first aid kit including dispos- A chemical, biological or
able latex gloves, and copies of your If a bomb explodes radiological incident
important personal documents. •• Protect yourself from falling •• In a chemical, biological or
debris. radiological incident, the most
During an emergency •• Get away to an open space or important things to remember
Following is some general emerg- protected area as quickly and are to minimise your exposure,
ency advice and information on what calmly as possible. then watch your television or
to do in specific situations. •• Stay away from tall buildings, listen to your radio and wait for
glass windows and parked emergency services to tell you
General advice vehicles. what to do.
•• Try to remain calm and reassure •• Follow the instructions of the •• It is not possible to give specific
others. emergency services. instructions for all chemical,
•• Check for injuries. Attend to •• If you have any information biological or radiological
your own injuries first so you that may help apprehend incidents as what to do will
are then able to help others. suspects or identify a vehicle depend on what agent has been
•• Ensure your family and involved, contact the police or released.
neighbours are safe – especially the National Security Hotline •• If there is a public alert about
children, the elderly or those at once. an incident, authorities may
who are living alone. tell you to stay inside, close all
•• Watch your television or listen If you receive a suspicious package doors and windows and turn off
to your radio for information. •• Do not open it. air conditioners. Alternatively,
•• Follow the advice of the •• Leave it alone and immediately you may be told to evacuate
emergency services. If it is dark, clear the area. the area. Follow the advice of
check for damage using a torch. •• Call 000 and ask for the police. emergency services.
Do not light a match – there Wait in a safe place until •• Current advice from official
could be gas in the air. emergency services arrive, and intelligence services is that
•• If you smell gas, turn off the main follow their instructions. the likelihood of a chemical,
gas valve if it is safe to do so, and biological or radiological terrorist
quickly move everyone outside. If you are caught in a fire attack in Australia is low.
•• Call to let someone know you •• Stay low to the floor, as smoke •• Health authorities and
are safe but minimise other and heat rises. emergency services have
detailed plans in place to deal
with a situation and treat those
affected.
•• Stockpiles of antibiotics,
vaccines, anti-viral drugs and
chemical antidotes are in place.

For more information on what


to do in an emergency, visit the
Frequently Asked Questions page
of the website.
© Commonwealth of Australia 2015.

Australian National Security. What I can do.


Retrieved from www.nationalsecurity.gov.au
on 22 February 2016.

22 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


AUSTRALIA’S COUNTER-TERRORISM
LAWS: QUESTIONS AND ANSWERS
This pamphlet information explains the latest counter-terrorism laws
and is reproduced courtesy of the Attorney-General’s Department

TERRORIST ACT OFFENCES or she means to engage in that conduct. A person has
AND HOW THEY APPLY intention with respect to a circumstance if he or she
believes that it exists or will exist. A person has intention
Australia’s terrorist act offences are contained in the with respect to a result if he or she means to bring it
Criminal Code Act 1995. about or is aware that it will occur in the ordinary
course of events.
What is a terrorist act? A person is reckless with respect to a result or a

A
‘terrorist act’ is an act, or a threat to commit an circumstance if the person is aware of a substantial risk
act, that is done with the intention to coerce that the result or circumstance will exist and having
or influence the public or any government regard to the circumstances known to the person, it
by intimidation to advance a political, religious or is unjustifiable to take the risk.
ideological cause, and the act causes:
•• Death, serious harm or endangers a person TERRORIST ORGANISATIONS
•• Serious damage to property AND RELATED OFFENCES
•• A serious risk to the health or safety of the public, or
•• Seriously interferes with, disrupts or Australia’s terrorist organisation offences are contained
destroys critical infrastructure such as a in the Criminal Code Act 1995.
telecommunications or electricity network.
What is a terrorist organisation?
A terrorist act does not cover engaging in advocacy, A terrorist organisation is an organisation that:
protest, dissent or industrial action where a person •• A court finds is either directly or indirectly engaged
does not have the intention to urge force or violence in preparing, planning, assisting in or fostering the
or cause harm to others. doing of a terrorist act, or
If found guilty of committing a terrorist act, a person •• An organisation that has been listed by the
could face up to life imprisonment. Government.

What is a terrorist act offence? When can the Government list


The terrorist act offences mean it is an offence to: a terrorist organisation?
•• Commit a terrorist act The Government can list an organisation as a terrorist
•• Plan or prepare for a terrorist act organisation if it advocates terrorism or engages in
•• Finance terrorism or a terrorist preparing, planning, assisting or fostering the doing of
•• Provide or receive training connected with a terrorist act.
terrorist acts
•• Possess things connected with terrorist acts, or An organisation advocates terrorism if it directly or
•• Collect or make documents likely to facilitate indirectly:
terrorist acts. •• Counsels or urges the doing of a terrorist act
•• Provides instruction on the doing of a terrorist act,
A person may be convicted of a terrorist act offence or
if the person intends to commit one of these offences •• Directly praises the doing of a terrorist act, where
or if the person was reckless as to whether his or her there is a substantial risk that this praise might lead
actions would amount to a terrorist act. a person to engage in a terrorist act.
For example, a person may be found guilty of a
terrorist act offence where the person intentionally Before an organisation can be listed, the Attorney-
prepared or planned the commission of a terrorist act General must be satisfied on reasonable grounds that
but did not actually commit the terrorist act themselves. the organisation is directly or indirectly engaged in,
A person may still commit a terrorist act offence even preparing, planning, assisting in or fostering the doing
though a terrorist act did not occur. of a terrorist act.
When the Government decides to list an organisa-
What does it mean to have an intention to do tion as a terrorist organisation, that decision is publicly
something or to be reckless about something? reviewed by the Parliamentary Joint Committee on
A person has intention with respect to conduct if he intelligence and security. Any person who wishes to

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 23


raise any issues with the decision to list an organisa- of the other terrorist organisation offences, a person
tion may submit their objections or concerns to the may be imprisoned for up to 25 years.
Parliamentary Joint Committee. More information on
the Parliamentary Joint Committee’s reviews of the Can a person commit a terrorist organisation
listing of organisations can be found at www.aph.gov.au offence where the organisation has not
under Committees. been listed by the Government?
The listing of an organisation ceases to have effect A person may commit a terrorist organisation offence
three years after its commencement, or if the Attorney- even if the Government has not listed the organisation
General ceases to be satisfied that the organisation is as long as that organisation is directly or indirectly
directly or indirectly engaged in, preparing, planning, engaged in, preparing, planning, assisting in or
assisting in or fostering the doing of a terrorist act, fostering the doing of a terrorist act.
whichever occurs first. In prosecuting the terrorist organisation offence, the
Terrorist organisations listed in Australia can be prosecution would need to prove beyond reasonable
found on the National Security website at www.national doubt to a court that the organisation is directly
security.gov.au under Terrorist organisations. or indirectly engaged in terrorism. In addition, the
prosecution would have to prove that the person
What offences apply in relation either knows that the organisation is a terrorist
to terrorist organisations? organisation or is aware there is a substantial risk
It is an offence to: that the organisation is involved in terrorist activity.
•• Be a member of
•• Direct the activities of PREVENTATIVE DETENTION
•• Recruit for AND WHEN IT APPLIES
•• Train or receive training from
•• Acquire funds for, from or to, or When can the police preventatively
•• Provide support to a terrorist organisation. detain a person?
The police can detain people under preventative
Providing support to a terrorist organisation means detention orders only where there is a threat of an
any support or resources that are intentionally provided imminent terrorist attack or immediately after a terr-
to help the organisation prepare, plan, assist in or foster orist attack has occurred.
the doing of a terrorist act. Individuals can be detained if it is necessary to
It is also an offence to associate with a listed terrorist prevent an imminent terrorist act or if it is likely vital
organisation. Associating with a listed terrorist organi- evidence in the aftermath of a terrorist act will be lost.
sation is prohibited where the association occurs two Under Commonwealth law, the maximum amount
or more times, the association provides support to the of time a person can be preventatively detained is 48
organisation and the person intends that the support hours. Under state and territory laws, a person can be
assists the listed organisation to expand or to continue detained for up to 14 days. Importantly, even when
to exist. a combination of the Commonwealth and state or
However, a person would not commit the association territory preventative detention regimes are applied,
offence if he or she is associating with a close family the maximum time a person can be preventatively
member for the purposes of a family or domestic matter detained is 14 days.
and importantly, a person’s cultural background will be
taken into account in determining whether something A person detained under a preventative detention
is a family or domestic matter. order has the right:
There are also exemptions from the association •• To be treated humanely and not be subjected to
offence if the association occurs during the course of cruel, inhuman or degrading treatment
religious worship in a public place, such as a mosque •• To contact a lawyer
or church. •• To contact family members and employers to let
To be found guilty of these offences, a person must them know they are safe
either have known the relevant organisation was a •• To not be questioned
terrorist organisation, or have been reckless as to •• To have a copy of the preventative detention order,
whether it was a terrorist organisation. which contains a summary of the reasons for
However, in order to commit the offence of being making the order
a member of a terrorist organisation, the person must •• To an interpreter if they have difficulty with English.
know they are a member of a terrorist organisation.
If a person is found guilty of associating with a Children under 16 years of age cannot be detained. A
terrorist organisation, the maximum penalty is three person that is at least 16 years of age but under 18 can be
years imprisonment or if a person is found guilty of detained but must be detained separately from adults.
being a member of a terrorist organisation, the maximum They can also have a parent or guardian visit them while
penalty is 10 years imprisonment. If found guilty of one they are being detained.

24 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


INVESTIGATING A TERRORISM OFFENCE •• To make a complaint at any time about ASIO or the
Australian Federal Police to the Inspector-General
If you or someone in your care is detained and/or of Intelligence and Security or the Commonwealth
questioned by the police, you will require more detailed Ombudsman
advice than that provided in this pamphlet. •• To contact a parent or guardian if the person is 16
or 17 years of age and have their parent or guardian
When and how can the police detain a person present during questioning.
for questioning when investigating terrorism?
The Commonwealth Crimes Act 1914 enables the police Under an ASIO questioning and detention warrant
to arrest and detain a person for questioning where a person is entitled to contact a lawyer for legal advice.
there are reasonable grounds to believe the person has A person who is the subject of an ASIO questioning, or
committed a Commonwealth offence. questioning and detention, warrant:
The police can question a person for an initial •• Must answer all questions permitted by the warrant
period of four hours (or two hours for persons who •• Must surrender their passports
are or appear to be under 18 years, or are Aboriginal •• Must not leave Australia without permission
or Torres Strait Islander), which can be extended •• Must not tell others, while the warrant is on foot,
with the approval of a judicial officer to a maximum that they are being questioned or detained by ASIO,
of 12 hours, or, in the case of a terrorism offence, to a unless they are permitted to do so
maximum of 24 hours. •• Must not tell others, for a period of two years after
The questioning time is able to be suspended to the expiry of the warrant, about any operational
enable the person to rest, receive medical attention, information relating to the warrant, unless they are
speak to a lawyer or other representative or commu- permitted to do so.
nicate with a friend, relative, interpreter or relevant
consular officer if the person is not an Australian citizen. The penalty for not complying with these conditions
In the case of a terrorism offence, a judicial officer is five years imprisonment.
may also approve additional periods of time where it is It is important to understand that if a person has
necessary for police to collect and analyse information been questioned by ASIO they cannot talk about it.
from overseas authorities, operate between different If you or someone in your care is subject to ques-
time zones or translate material. During these addi- tioning by ASIO, you will require more detailed advice
tional periods of time, questioning must be suspended. than that provided in this pamphlet.
In addition to the requirement that any extension
of the questioning period or additional detention PREVENTING THE FINANCING
for the purposes of investigation be approved by an OF TERRORISM
independent judicial officer, there are a range of other
safeguards in the legislation. These safeguards include What does it mean to finance terrorism?
the right for a suspect to have a lawyer present during Financing terrorism involves the intentional collection
questioning and the right to be treated with humanity or provision of funds (including on behalf of another
and respect for human dignity. person) and recklessness as to whether the funds will
be used to facilitate or engage in a terrorist act.
What about questioning and It does not matter if a terrorist act does not occur, or
detention by ASIO? if the funds will not be used for a specific terrorist act
The Australia Security Intelligence Organisation (ASIO) or for more than one terrorist act.
can question, and in limited circumstances detain,
people in order to gather information for preventing Can a person be convicted of financing
terrorist attacks. terrorism if he or she donates to a charity?
ASIO must have a warrant issued by a federal judge If the person making the donation is aware there is
or federal magistrate before it can use its questioning a substantial risk that the donation will be used for
and detention powers. terrorism purposes and it is unjustifiable to take that
A person can be detained for up to seven continuous risk in the circumstances, that person could be convicted
days and they can be questioned for a maximum period of financing terrorism.
of 24 hours, or 48 hours if they need an interpreter.
Children under 16 years of age cannot be detained or What is being done in Australia to enforce laws
questioned by ASIO. preventing the financing of terrorism?
Australia has a special agency, the Australian Trans-
A person who is questioned or detained by ASIO has actions and Reports Analysis Centre (AUSTRAC), that
the right: monitors bank accounts and the movement of money.
•• To be treated humanely and not be subjected to This means the chances of catching people involved in
cruel, inhuman or degrading treatment financing terrorism are high.
•• To have access to a lawyer It is also possible to have bank accounts frozen in

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 25


Foreign incursions and recruitment offences
Fact sheet advice from the Attorney-General's Department

n 1 December 2014 the Crimes (Foreign Incursions Declared area offence


O and Recruitment) Act 1978 was repealed and foreign
incursions and recruitment offences were relocated to
new Part 5.5 of the Criminal Code Act 1995.
It is an offence for a person to intentionally enter, or remain
in, a declared area in a foreign country where the person
is reckless to the fact that the area is a declared area. The
Under Part 5.5 of the Criminal Code, it is an offence to: maximum penalty for this offence is 10 years imprisonment.
hh Enter a foreign country with an intention to engage in The Minister for Foreign Affairs may declare an area in a
a hostile activity, unless serving in or with the armed foreign country if they are satisfied that a listed terrorist
forces of the government of a foreign country organisation is engaging in a hostile activity in that area.
hh Prepare to enter, or for another person to enter, a foreign The Minister’s decision will be based on advice provided by
country with an intention to engage in a hostile activity Australian Government agencies in the form of a Statement
hh Recruit persons to join an organisation engaged in hostile of Reasons.
activities, or to serve in or with an armed force in a foreign Whenever possible, the Statement of Reasons will be
country. prepared as a stand-alone document, based on unclassified
information about the hostile activity that a listed terrorist
The Attorney-General may permit recruitment of a person organisation is engaging in that area of the foreign
or class of persons to serve with an armed force of a country. This enables the Statement of Reasons to be made
foreign country if it is in the interests of the defence or available to the public, and provides transparency as to the
international relations of Australia. basis on which the Minister’s decision is made.
It is not an offence under Part 5.5 for an Australian to join More information about the declared area offence is
the armed forces of a foreign country. available on the Australian National Security website
If a person is found guilty of entering or preparing to (www.nationalsecurity.gov.au/WhatAustraliaisdoing/Pages/
enter a foreign country to engage in a hostile activity, DeclaredAreaOffence.aspx).
the maximum penalty is life imprisonment. If a person is
found guilty of recruiting a person to join an organisation © Commonwealth of Australia 2015.
engaged in hostile activities, the maximum penalty is 25
years imprisonment. The maximum penalty for the offence Attorney-General’s Department. Foreign incursions
of recruiting persons to serve in or with an armed force of and recruitment offences. Retrieved from
a foreign country is 10 years imprisonment. www.ag.gov.au on 17 February 2016.

Australia if the funds in such accounts belong to, or are A control order does not come into effect until the
derived from, a listed terrorist organisation. person subject to it is notified and must not last longer
than 12 months.
EXPLAINING CONTROL ORDERS A person can apply for a control order to be varied,
revoked or declared void as soon as the person is notified
What is a control order? that an order is confirmed.
A person can be subject to a control order if it substan- In deciding whether to issue a control order, a court
tially assists in preventing a terrorist attack or if the must consider the impact of each of the control order
person has trained with a listed terrorist organisation. requirements upon the person’s circumstances, includ-
Control orders must be issued by a court. ing their financial and personal circumstances.
A person subject to a control order and his or her
A control order can stop a person from: lawyer are able to obtain a copy of the order which
•• Being in certain areas or leaving Australia contains a summary of the grounds for the order.
•• Communicating or associating with certain people A control order cannot apply to children under 16
•• Owning or using certain articles years of age. For people aged at least 16 years but under
•• Carrying out certain activities, including work 18 years, a control order can only apply for a maximum
•• Accessing certain forms of technology, including of three months. For people aged 18 years or over, a
the internet. control order can last for up to 12 months.

A control order can require a person to: © Commonwealth of Australia 2015.


•• Remain in premises between certain times of
each day Attorney-General’s Department. Australia’s counter-
•• Wear a tracking device terrorism laws: questions and answers, pp. 4-14. Retrieved
•• Report to someone at a certain time and place from www.ag.gov.au on 17 February 2016.
•• Allow themselves to be photographed.

26 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Fact sheet: counter-terrorism laws
A Universal Periodic Review from the Australian Human Rights Commission

A
ustralia has enacted a range National Security Legislation broad range of circumstances. The
of laws aimed at combatting Monitor (INSLM). The INSLM Commission has expressed concern
the threat of terrorism. It is has a statutory mandate to review that the regime unjustifiably limits
critically important that security the operation, effectiveness and individual rights to privacy and
agencies have appropriate powers implications of Australia’s counter- freedom of expression.3
to ensure national security, even terrorism and national security laws
where this impinges on individual on an ongoing basis. In his annual RECOMMENDATION
rights and freedoms. However reports to parliament the first The Commission recommends that
such limitations must be clearly INSLM repeatedly recommended Government ensure all counter-
expressed, unambiguous in their that government moderate aspects terrorism laws remain under constant
terms and legitimate and proport- of counter-terrorism laws better review to ensure that any infringe-
ionate responses to potential harms. safeguard rights and freedoms. ment of human rights is legitimate
Government has not yet responded and proportionate.
KEY ISSUES to any of the INSLM’s reports
Federal law provides for the opera- nor has it adopted the INSLM’s NOTES
1. For example, in his 2012 report, the INSLM
tion of control orders, preventive recommendations to moderate recommended that control order provisions
detention orders and questioning counter-terrorism laws.1 be repealed. Rather than addressing this
and detention orders. Control orders Over the past year, the govern- recommendation, in 2014, the government
may place significant prohibitions ment has enacted laws that make it expanded the control order regime and
and restrictions on a person’s free- an offence, punishable by imprison- weakened associated safeguards.
dom of movement, expression, ment, for any person including a 2. See further Australian Human Rights
Commission Submission to the Parlia-
association and right to privacy. journalist, to report on matters that mentary Joint Committee on Intelligence
Preventive detention orders allow are defined under the act as a ‘special And Security Inquiry into the National
the detention of persons without intelligence operation’.2 The laws Security Legislation Amendment Bill (No.
criminal conviction or charge. Ques- further expand powers of security 1) 2014 (21 August 2014), paras 54-63.
tioning and detention warrants agencies to obtain information 3. See further Australian Human Rights
Commission, Submission to the
allow for those who have not been without warrant.
Parliamentary Joint Committee On
suspected of any offence to be ques- In early 2015 the Australian Intelligence And Security Inquiry into the
tioned and detained for the purposes government introduced a mand- Telecommunications (Interception and
of gathering intelligence about atory data retention scheme. The Access) Amendment (Data Retention) Bill
terrorism offences. These provisions scheme requires service providers 2014 (14 January 2015).
can interfere with individual rights to retain communications data for Australian Human Rights Commission (2015).
and freedoms. two years. This data would then Fact sheet: Counter-terrorism laws.
In 2011 the Government created be available to law enforcement Retrieved from www.humanrights.gov.au
the office of the Independent agencies without a warrant in a on 22 June 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 27


AUSTRALIA’S HUMAN RIGHTS
SCORE CARD: COUNTER-TERRORISM
This NGO Coalition fact sheet relating to Australia’s 2015 Universal Periodic Review
was reproduced courtesy of the Human Rights Law Centre

S
ince 2001, Australia has enacted over 60 counter- needs merely to enter or remain in the area. As a defence,
terrorism laws.1 These laws contain a wide range the person may show that he or she travelled to the area
of criminal offences and grant broad investigative solely for a legitimate purpose.5 There is a list of specified
powers to the police and intelligence agencies. Many legitimate purposes, such as conducting official duties,
of these laws infringe upon fundamental human visiting a family member or providing humanitarian
rights by restricting the rights to liberty, privacy, and aid.6 However, this list of defences is short and does
the freedoms of speech, movement, and association. not include a range of legitimate reasons why a person
might travel to a foreign country in conflict (such as
OFFENCE OF ENTERING OR REMAINING visiting a friend, or conducting business transactions).
IN A ‘DECLARED AREA’ The government has not technically reversed the
In October 2014, the Abbott government passed the onus of proof, as the prosecution must still prove
Counter-Terrorism Legislation Amendment (Foreign each element of the offence beyond reasonable doubt.
Fighters) Act 2014 (Cth) (Foreign Fighters Act) in response However, the offence is framed in such a way that is has
to the threat of foreign fighters returning from the essentially the same effect. The offence clearly infringes
conflicts in Iraq and Syria. The Foreign Fighters Act the right to freedom of movement by prohibiting
introduced a new offence, punishable by 10 years’ Australians from travelling to designated ‘no-go zones’.
imprisonment, of entering or remaining in a ‘declared
area’.2 The Minister for Foreign Affairs may declare Proposed recommendation
part of a foreign country as a declared area if he or she Australia should repeal the offence of entering or
is satisfied that a terrorist organisation is engaged in remaining in a declared area.
a hostile activity in that area.3 This might include, for
example, parts of Iraq, Syria, Afghanistan, Pakistan or OFFENCE OF ADVOCATING TERRORISM
Indonesia. The Foreign Fighters Act also introduced a new offence
There are no other elements to this offence, such as of ‘advocating terrorism’.7 This offence will be made
an intention to engage in hostile activity.4 The person out where the person counsels, encourages, urges or

28 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


promotes terrorism, and is reckless as to whether another
person will engage in terrorism as a result.
While it should be (and is) a criminal offence to
incite unlawful acts,8 this offence goes beyond the
existing law of incitement.9 In doing so, it restricts the
freedom of individuals to voice legitimate opinions on
overseas conflicts. For example, the offence could apply
to an individual who posted on a website that fighters
opposing the Assad regime in Syria should engage in
further attacks. In any conflict there will be difficult
lines as to what acts are legitimate to encourage or
promote, but clearly there should be scope in a free
democratic society to adopt differing viewpoints on
such difficult and divisive issues.

Proposed recommendation
Australia should repeal the offence of advocating terrorism.

COUNTER-TERRORISM POWERS
Some of Australia’s most controversial counter-terr-
orism powers – namely control orders,10 preventative
detention orders (PDOs),11 and a power that allows ASIO
(Australia’s domestic intelligence agency) to question
non-suspects while detaining them for up to a week12
– were due to expire under sunset clauses in late 2015
and early 2016. Through the Foreign Fighters Act, the
Abbott government extended the operation of these
powers until September 2018.13
These powers allow the police and ASIO to place
significant restrictions on an individual’s liberty
without a finding of criminal guilt. They had been 3. Criminal Code Act 1995 (Cth), s 119.3(1).
4. As in other foreign incursions offences: see Criminal Code Act
discredited in major inquiries by the Independent
1995 (Cth), s 119.1.
National Security Legislation Monitor (INSLM), the 5. Criminal Code Act 1995 (Cth), s 119.2(3).
COAG Counter-Terrorism Review and parliamentary 6. Criminal Code Act 1995 (Cth), s 119.2(3).
committees, which recommended that the powers 7. Criminal Code Act 1995 (Cth), s 80.2C.
be repealed or substantially amended.14 For example, 8. Criminal Code Act 1995 (Cth), s 11.4.
the COAG Counter-Terrorism Review remarked that 9. Because it extends to the ‘promotion’ of violence, and because
powers such as PDOs “might be thought to be unac- the person need only be reckless (rather than intend) that violence
ceptable in a liberal democracy”.15 In extending the will occur: see, eg, R v Chonka [2000] NSWCCA 466 [77].
operation of these powers, the government bypassed 10. Criminal Code Act 1995 (Cth), div 104.
11. Criminal Code Act 1995 (Cth), div 105.
a major opportunity for their amendment or repeal.
12. Australian Security Intelligence Organisation Act 1979 (Cth),
Other new powers relating to the threat of terrorism pt III div 3.
– including a mandatory data retention regime – pose 13. Criminal Code Act 1995 (Cth), ss 104.32, 105.53; Australian
a significant risk to the privacy of Australian citizens.16 Security Intelligence Organisation Act 1979 (Cth), s 34ZZ.
These laws should similarly be reviewed and amended 14. Independent National Security Legislation Monitor, Declassified
in line with Australia’s international human rights Annual Report (2012) 44, 67; Australian Government, Council
obligations. of Australian Governments Review of Counter-Terrorism
Legislation (2013) 68; Parliamentary Joint Committee on ASIO,
Proposed recommendation ASIS and DSD, Parliament of Australia, An Advisory Report on
Australia should review and amend its counter- the Australian Security Intelligence Organisation Legislation
terrorism powers – particularly control orders, Amendment (Terrorism) Bill 2002 (2002) vii.
PDOs, ASIO’s questioning and detention powers, 15. Australian Government, Council of Australian Governments
Review of Counter-Terrorism Legislation (2013) 68.
and mandatory data retention – to ensure that they
16. Telecommunications (Interception and Access) Amendment
are consistent with the rights to liberty, privacy, and (Data Retention) Act 2014 (Cth). See also ASIO’s power to seek
Australia’s other international human rights obligations. computer access warrants in Australian Security Intelligence
Organisation Act 1979 (Cth), s 25A.
NOTES
1. George Williams, ‘The Legal Legacy of the War on Terror’
(2013) 12 Macquarie Law Journal 3, 7. Human Rights Law Centre (2015). Australia’s 2015 UPR-NGO Coalition
2. Criminal Code Act 1995 (Cth), s 119.2. Fact Sheet 7. Retrieved from http://hrlc.org.au on 24 February 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 29


CITIZENSHIP IN AN AGE OF
HOME‑GROWN TERRORISM
AN EXTRACT FROM AN AUSTRALIAN GOVERNMENT BOOKLET ENTITLED
'AUSTRALIAN CITIZENSHIP: YOUR RIGHT, YOUR RESPONSIBILITY'
The obligations of Australia is rising along with the have planned to conduct terrorist
citizenship in an age of number of known sympathisers and attacks here.
home-grown terrorism supporters of extremists. Thous- Last September, the Government

O
ur success as a unified and ands of young and vulnerable people raised the National Terrorist Threat
cohesive nation created in the community are susceptible to Level to HIGH: our security agen-
from a diversity of cultures, radicalisation. cies assess that a terrorist attack in
ethnicities and faiths could be The scale of involvement by Australia is likely. Since then, we have
challenged by a home-grown threat Australian civilians in the conflict seen an attack in Melbourne and the
from people who reject our values in Syria and Iraq far outstrips any Martin Place siege; other attacks have
and are prepared to resort to violence previous conflict. There are at least been disrupted. Twenty-three people
to impose ideological, political or 100 Australians fighting with or have been arrested and charged as a
social change. supporting terrorist groups in Iraq result of counter-terrorism opera-
The recent Counter-Terrorism and Syria. Australian security agen- tions in the last eight months – one
Review concluded that Australia cies are investigating close to 160 third of all terrorism-related arrests
has entered a new, long-term era people in Australia who are actively since 2001.
of heightened terrorism threat, supporting extremist and terrorist The Government is serious about
with a much more significant groups; the overwhelming majority countering home-grown terrorism.
‘home-grown’ element. It assessed of these people are young people. We are investing $1.3 billion in new
that the threat of terrorism in This includes a small number who counter-terrorism capabilities, and
we have systematically updated our
national security legislation to give
Citizens who become involved in terrorism are rejecting our law enforcement and security
Australia’s values and commitment to a safe and harmonious agencies the powers they need to
society. Support for, or involvement in, politically motivated tackle the threat of home-grown
violence is not acceptable to Australians. So it is reasonable terrorism.
Robust security and law enforce-
to consider measures to act against those who betray the ment efforts are essential. So too
allegiance inherent in their citizenship of our nation. are stronger efforts to counter rad-
icalisation in the community. We
are developing new programmes to
challenge terrorist propaganda and
to provide an alternative narrative
based on Australian values. All
Australian governments are work-
ing with local communities to
counter violent extremism.
As part of this overall strategy,
we want to examine how we might
build on existing citizenship laws to
help deal with the terrorism threat.
Citizens who become involved in
terrorism are rejecting Australia’s
values and commitment to a safe
and harmonious society. Support
for, or involvement in, politically
motivated violence is not acceptable
to Australians. So it is reasonable
to consider measures to act against
those who betray the allegiance
inherent in their citizenship of
our nation.

30 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Revocation of citizenship is the case in UK law. In the UK it Government support. These people
for dual nationals is possible to revoke the citizenship could be deemed to have abused the
engaged in terrorism of a person who has a legal right of trust placed in them and the privi-
Dual citizenship strengthens the access to the citizenship of another leges they have gained through their
social and economic fabric of our country, even if that right has not citizenship. It was in this light that,
nation. The ability of Australian been exercised. Any new law would in November 2014, the Australian
citizens to also be citizens of other need to be consistent with our Government legislated to allow for
countries gives people more free- international legal obligations not welfare payments to Australians
dom to move in an increasingly to make a person stateless. to be cancelled on national secu-
globalised world. It has strength- Measures to broaden the grounds rity grounds.
ened our links with other nations, for revocation, while very serious, Australian citizenship has to
including in our region. Dual should be proportionate given mean something. When citizens
citizenship recognises there are the severity of threats to national conduct themselves in ways at odds
Australians who have close connec- security. There would be safeguards with their allegiance to Australia, a
tions to Australia and to another – including judicial review – to line has to be drawn.
country as well. ensure there are appropriate checks Privileges of citizenship are fun-
However, Australian citizenship and balances on their operation. damentally linked to an ongoing
has never been unconditional. Since commitment to Australia and
1949, there have been provisions for −− In what circumstances should a participation in Australian society.
the automatic loss of citizenship holder of Australian citizenship If citizenship is the contract by
when a dual citizen serves in the be regarded as having forfeited which we all abide, at what point
armed forces of a country at war citizenship? is it broken and what should be the
with Australia. −− Should the powers of revocation consequences when it is?
Arguably, Australians who engage apply to citizens when the
in a serious act of terrorism do Minister has reasonable grounds −− Should certain privileges of
not deserve to remain Australian to believe that the person is able citizenship – such as the right
citizens. The United States, New to become a national of another to vote in elections and receive
Zealand, the United Kingdom, country or territory under their consular assistance – be able to be
France and many other European laws and where it would not leave suspended for Australian citizens
countries have powers to revoke that person stateless? engaged in terrorism?
citizenship on broad national secu- −− What limitations and safeguards −− If so, which privileges would be
rity grounds. Canada has legislation should apply to laws enabling the reasonable to suspend and under
which will come into force in the revocation of the citizenship of what circumstances?
near future. Australians engaged in terrorism? −− How might we guard against
The Government intends to mod- unintended consequences?
ernise the Australian Citizenship Suspension of privileges
Act to enable the Minister for for Australian citizens © Commonwealth of Australia 2014.
Immigration and Border Protection engaged in terrorism
to take action in the national To ensure there are consequences Department of Immigration and Border
interest to revoke the Australian for all Australians who engage in Protection (2014). Australian Citizenship
citizenship of dual citizens who terrorism, not just dual citizens, Your Right, Your Responsibility, pp. 5-7.
Retrieved from www.border.gov.au
engage in terrorism that betrays should we consider additional
on 17 February 2016.
their allegiance to Australia. These powers like suspending certain
powers would be used against dual privileges of citizenship? There are
citizens who join or support listed legal obligations that may limit the
terrorist groups such as Daesh, Government’s ability to suspend
or engage in terrorist acts alone. certain privileges.
They would apply to dual citizens There are already circum-
who engage in terrorist activities stances where some privileges of
here in Australia or on foreign citizenship are suspended with
soil, including that of our friends broad community acceptance. For
and allies. instance Australians serving prison
The Government is also consid- sentences of more than three years
ering enabling the Minister to revoke have their voting rights suspended
Australian citizenship where there while they are imprisoned.
are reasonable grounds to believe the The Commonwealth Govern-
person is able to become a national ment is concerned that citizens
of another country under their laws who deliberately undermine our
and would not be made stateless, as nation may have benefited from

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 31


SORTING FACT FROM FICTION
IN THE CITIZENSHIP BILL DEBATE
As the bill to strip dual-national terrorists of their citizenship passes the Senate, it’s
worth addressing the misconceptions that critics on both the left and the right are
labouring under, writes Jacinta Carroll for The Drum

S
tripping citizenship for terrorism offences has These unlikely bedfellows share a substantial body
received a lot of attention and commentary in the of common views on the issue, arguing that individuals
six months since it was proposed. suspected of terrorist sympathy and conduct should
For all the discussion, however, there appears to be a be subject to substantial and ongoing monitoring and
lot of misinterpretation and understanding about what surveillance by law enforcement and where possible
the proposal will mean. “locked up”. Both agree strongly that the bill will have
The amendments to the Citizenship Act are expected no impact on the terrorist threat in Australia.
to pass in the Senate this week, so it is useful to reflect The irony of some members of the left arguing for
on what this will actually mean. increased surveillance and monitoring throughout the
Commentary has ranged from the left expressing counter-terrorism legislation debate appears to have
outrage at the bill allegedly breaching international been missed.
humanitarian law and leaving Australians “adrift” Firstly, context.
internationally, while the right expresses horror that
the bill doesn’t go far enough in permanently rooting
What are Australia’s laws?
out all terrorist threats to Australia, and should also be
How does Australia’s proposed approach sit interna-
extended to those holding only Australian citizenship.
tionally? It might surprise some to know that the way
Australia deals with citizenship is not shared by all other
countries. Many countries do not permit dual citizen-
There are no hard and fast standards ship, or only do so in narrowly prescribed circumstances,
of how citizenship may be conferred or and revoke citizenship on grounds including security.
withdrawn, and it remains very much a Austria, Norway and Spain, for example amongst
matter for consideration by individual others, generally do not allow their citizens to have
states, and at different times. more than one citizenship. Some that do recognise dual
citizenship, including the UK, have or are considering
actions to limit it on security grounds. That said, it will
be interesting to see how new Canadian prime minister
Justin Trudeau navigates an election promise to repeal
citizenship revocation in the wake of the Paris attacks.
The current Australian system of allowing dual
citizenship without renouncing original citizenship
is a relatively recent phenomenon, instituted in 1986.
And it was only in 2002 – yes, just over a decade ago
– that Australian law was changed to allow citizens to
become citizens of another country without renoun-
cing Australian citizenship.
An oath of allegiance, in some form, outlining rights
and responsibilities of Australian citizenship has been
part of naturalisation as an Australian since 1948.
There are no hard and fast standards of how citizen-
ship may be conferred or withdrawn, and it remains very
much a matter for consideration by individual states,
and at different times.
In Australia’s case, economic drivers to further
migration have featured prominently in our citizenship
arrangements for the past 30 years. Security issues have
had less prominence, but have nonetheless featured in
consideration of citizenship laws, both in the original
1948 Act and the 2007 Citizenship Act. It is reasonable
that citizenship has been considered as part of the
current review of counter-terrorism arrangements.

32 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Is stripping citizenship legal?
Next, the tricky issue of how this matter sits legally. The real test will be the impact of these
The Solicitor-General has advised the legislation is changes on the terrorist threat. The answer
legally sound, although it would be beneficial for this here is that the citizenship amendments are
advice to be made public rather than provided only only a small part of the counter-terrorism
to politicians.
puzzle. This is a conservative extension of
Attorney-General George Brandis outlined in the
Senate on Tuesday the rationale of the proposed
powers, but can only provide limited utility in
changes, noting that the authority for the state to countering terrorism, and this may well be the
revoke citizenship in the case of those bearing arms subject of debate after future terrorist acts.
against Australia has been part of our citizenship law
since 1948. It is reasonable, he argues, for the existing
arrangements to be extended to those who bear arms for
a terrorist group, rather than a state, fighting Australia
and/or Australia’s interests.
From the logic and principle of both legislation and
current modes of conflict, Brandis’ argument is sound.
Through the committee process, the legislation has
incorporated administrative procedure and review
oversight provisions that are commensurate with
other actions and are on a par with comparable
countries.
How this sits with the Constitution may be up for
challenge in the High Court when the provisions are
eventually used. Although it will be interesting to see
how the public would react to such a case as terrorists
have attracted little sympathy to date.

How would it work in practice?


Lastly, how will citizenship revocation work? The by the fringes of politics, so has all the hallmarks of a
provision operates only in specified circumstances. reasonable political compromise.
It does only relate to dual nationals but, because of
Australia’s international obligations, could not see a Jacinta Carroll is senior analyst and director, Counter Terrorism
Policy Centre at the Australian Strategic Policy Institute.
person removed to their country of origin if this would
put them in danger.
Some who are against the legislation argue that Carroll, J (3 December 2015). ‘Sorting fact from fiction
judicial criminal process should be followed instead. in the citizenship bill debate’, The Drum. Retrieved
from www.abc.net.au on 22 February 2016.
This is a misreading of the legislation, which already
puts the judicial process to the fore, requiring that
citizenship would be revoked only after conviction
of terrorism offence with a sentence of six years or
more. The only situation where the criminal justice
process would not apply is where the individual is
overseas; this is also the only case where the terrorism
'conduct' provision of citizenship revocation would
come into play.
But the real test will be the impact of these changes
on the terrorist threat. The answer here is that the
citizenship amendments are only a small part of
the counter-terrorism puzzle. This is a conservative
extension of powers, but can only provide limited
utility in countering terrorism, and this may well be the
subject of debate after future terrorist acts. It is part of
the framework, but other measures are also required.
The legislation is an appropriate updating of
Australia’s citizenship regime. Having been massaged
through months of committee and public review and
redrafting, it carries bipartisan support and will become
law. The Citizenship Amendment Bill is loathed equally

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 33


CHAPTER 3
Countering extremism and radicalisation

WHAT IS VIOLENT EXTREMISM?


LIVING SAFE TOGETHER WEBSITE ADVICE FROM THE AUSTRALIAN GOVERNMENT
Motivations are varied and many usually relate to
particular ideologies (for example, interpretations of
political movements or religious beliefs), issues such
as environmental or economic concerns, or ethnic or
separatist causes. People can also be motivated by more
than one issue.

All forms of violent extremism seek change


through fear and intimidation rather than
through peaceful means.

Ideological violence
The motivation for violent extremism in Australia is

V
iolent extremism is the beliefs and actions of often political. This includes right wing or nationalist
people who support or use violence to achieve extremism which has the goal of preserving the per-
ideological, religious or political goals. This ceived majority culture (usually white/Anglo-Saxon
includes terrorism and other forms of politically moti- culture/race) at the expense of other cultures. These
vated and communal violence. ideologies justify violence based on patriotism or a
belief of superiority to other cultures and races.
Violent extremism In Australia there are a small number of extreme
When a person’s beliefs move from being relatively nationalist groups, some of which promote Neo-Nazi
conventional to being radical, and they want a drastic type beliefs. They are sometimes called ‘hate’ groups
change in society, this is known as radicalisation. This because of their negative racist propaganda, which is
is not necessarily a bad thing and does not mean these often anti-immigration (e.g. ‘keep Australia white’),
people will become violent. anti-Semitic or anti-Islam. While their beliefs are
However, if a person or group decides that fear, offensive to many, their words and actions are not
terror and violence are justified to achieve ideological, necessarily unlawful. Using or advocating violence
political or social change, and then acts accordingly, to promote these or other beliefs, however, is
this is violent extremism. always unlawful.
Ideological violent extremism can also be motivated
Violent extremism in Australia by religious beliefs. In this instance the underlying
Australia has enjoyed a peaceful history, relatively motivation is also generally political, but is justified
free from violent extremism. Though the threat to the using interpretations of traditional religious texts
Australian community from violent extremist behav- and teachings, or following guidance from influential
iour is small, it still exists. people here and overseas.
Actions of violent extremists threaten Australia’s In Australia, acts of violence have been committed in
core values and principles, including human rights, the name of many different religions. They have often
the rule of law, democracy, equal opportunity and been planned by small groups or individuals inspired by
freedom. The Australian Government rejects all forms overseas organisations such as al-Qaeda.
of violent extremism and promotes a harmonious and An example of an individual motivated to violent
inclusive society. action by an interpretation of religious beliefs is
Christian fundamentalist and anti-abortionist Peter
Motivations for violent extremism James Knight, who killed one person in an attack on
There are many different types of violent extremism. an abortion clinic in Melbourne in 2001.

34 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Issue-based violence violent extremist group is ETA (Euskadi Ta Askatasuna),
Violent extremism dedicated to a specific issue or cause a Basque separatist group seeking independence from
such as animal liberation, environmental activism Spain for the Basque people.
or anti-gun control, is known as ‘issue-based violent Countries such as Australia, with large culturally
extremism’. and ethnically diverse communities, are often directly
Supporters of this type of violent extremism can impacted by international conflicts/civil wars.
include groups that are anti-government, anti- globalisa- For example, in the 1980s and 1990s Australians
tion or anti-capitalist. travelled to the former Yugoslavia, and more recently
Activism dedicated to a specific issue can be disrup- Australians have participated illegally in conflicts
tive but is often used simply to draw attention to a cause in Afghanistan, Syria, Lebanon and Somalia. Some
through peaceful means. This is a legitimate expression people who have trained or fought overseas have also
of free speech in Australia. attempted to carry out acts of violent extremism in
However, violence, threatening behaviour and/or Australia after returning home from conflict zones.
criminal damage are sometimes advocated by people Individuals have been arrested in Australia for
who want to take their cause a step further. People or intentionally raising money to assist banned inter-
groups that use or support violence to promote their national terrorist organisations involved in ethnically
cause are of major concern. motivated conflicts. For example, people have been
For example, in 2009 a group reportedly representing convicted of raising money in Australia to support
the Earth Liberation Front hand delivered a threatening the Tamil Tigers of Sri Lanka.
letter to the head of a large Australian electricity While such conflicts can evoke strong emotions in
company, stating “your property will not remain safe.” communities in Australia and many feel compelled to
help those affected, it is important to be aware of the
Ethno-nationalist or separatist violence legality of any actions taken.
The actions of groups or individuals involved in violent
© Commonwealth of Australia 2015.
political or independence struggles based on race,
culture or ethnic background either in Australia or
Living Safe Together. What is violent extremism? Retrieved
overseas are often described as ethno-nationalist or from www.livingsafetogether.gov.au on 17 February 2016.
separatist violent extremism.
An example of an ethno-nationalist or separatist

What is radicalisation?
In Australia only a very small number of people have used or will ever use violence to promote their cause.
Those who do have most likely undergone a process called ‘radicalisation’.
Freedom of expression

E
veryone in Australia has the right to express their beliefs and group interests openly. As a democratic society, Australia
protects the rights of all law-abiding people, including those who belong to minority political, religious and ethnic
groups. However, it becomes a concern to everybody, including families, communities and law enforcement, if a person
begins to advocate or use violence to achieve a political, religious or ideological goal.

What is radicalisation?
Radicalisation happens when a person’s thinking and behaviour become significantly different from how most of the
members of their society and community view social issues and participate politically. Only small numbers of people
radicalise and they can be from a diverse range of ethnic, national, political and religious groups.
As a person radicalises they may begin to seek to change significantly the nature of society and government. However,
if someone decides that using fear, terror or violence is justified to achieve ideological, political or social change – this is
violent extremism.
Exactly what influences individuals to go down a path of using or supporting violence to seek change can be difficult to
determine, but there can be a number of factors. The radicalisation process is unique to each person who undergoes it, and in
most cases will not cause serious harm. In exceptional circumstances, however, the decisions made by a person radicalising
can result in a serious and lethal act of violent extremism.
Those who radicalise and display threatening behaviour, incite hatred or promote the use of violence for their cause require
some form of intervention. This may come from family, religious or community leaders or law enforcement.
Communities play a vital role in assisting people to move away from violent extremism and intervening to stop acts of
violence before they are committed.
© Commonwealth of Australia 2015.
Living Safe Together. What is radicalisation? Retrieved from www.livingsafetogether.gov.au on 17 February 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 35


WHY ARE YOUNG AUSTRALIANS
BEING DRAWN TO ISLAMIC STATE?
THIS ABC NEWS ARTICLE BY PAUL DONOUGHUE AND LUCY FAHEY EXPLORES THE
CAUSES AND WAYS OF COMBATING THE THREAT OF RADICALISATION

I
n Sydney, two teenagers try to board a plane to the The local expert
Middle East to fight for Islamic State. In Melbourne, Associate Professor Anne Aly, the founding chair of
friends and family of Jake Bilardi, the teenager People Against Violent Extremism, also says she is
suspected of carrying out a suicide bombing in Iraq, try “cautious of” an approach whereby the Government
to come to terms with his actions. identifies who is at risk of radicalisation and pushes
In a week that has seen high-profile examples of them towards so-called service providers.
young Australians becoming swept up in violent “There is so much resistance to any kind of
extremism, we spoke to key players about what’s luring government-designed ideas, or policy concepts ... of
young people to the militant group and what can be radicalisation – these kids are going to resist it,” she
done to stop it happening. says. “They need to be done by the people who are
more likely to have success in engaging young people.”
The community leader Like Ali Kadri, she says the “ripple effect” of getting
A few months ago, a young Brisbane man came to see through to one well-connected, at-risk young person
Ali Kadri, who works with the Holland Park Mosque in cannot be underestimated. She mentors young Somali
Brisbane, and told him he wanted to make something men in Perth, where she is based, and gets them
of his life – that he was a qualified panel beater before involved in her research work at Curtin University.
he joined a rebel motorcycle gang. “These three young men have all seen their friends
Mr Kadri took the man to Centrelink; he helped him become radicalised. They have been targeted by radical
through a Certificate IV in Bookkeeping. preachers at one point in their lives. And they have all
“He likes accounting,” says Mr Kadri, who also runs come into contact with a radicalising influence or a
an accounting firm and works with the Islamic Council radicalising environment,” she says.
of Queensland. “They have now gone back out there saying, ‘We are
“So he is going to do that, and I am going to employ doing all this really cool stuff, I’m working in an office’.
him, and train him while he is working for me.” Now, other young Somali men are saying, ‘Wow, that
In targeting the roots of violent extremism, Mr Kadri sounds really good, how can I get involved?’
says a key factor is the knock-on effect that can occur “You don’t go out and say, ‘Right, you, you’re rad-
when you help a young, marginalised member of the icalised, you need deradicalisation, come here, go to
Muslim community – those most susceptible to the lure this training program, go to this education program,
of extremist ideology, according to Mr Kadri. go see this counsellor’. It doesn’t work.”
“These people go out and then say ‘You know what, Associate Professor Aly says while there is a point
Ali’s not all that bad, he can help us get job, we’ll have a at which intelligence and monitoring are important,
career, we’ll have a life, blah blah blah’,” he says. in combating initial radicalisation, the Government
“But Government doesn’t want to do this; the should not be taking such a stringent national security-
Government wants to do it their own way, they don’t style approach.
see it being effective this way. Government is saying: “Because it is only ever seen as a national security
we will tell you who to help. And I’m saying: no, the issue, and the response is only ever going to be a national
community knows who to help.” security response,” she says.
For Mr Kadri, the Government’s recently announced “If you want to do prevention, you are working with
Countering Violent Extremism (CVE) program, in young people who haven’t committed any crime and
which community organisations specialising in educa- who shouldn’t be on any watch list. But you should be
tion or counselling can apply for extra funding and able to engage them in ways that stop them engaging
become 'service providers', is misguided. with radicalising influences.
“Employment is a problem, alienation is a problem, “I understand that people within the Government
marginalisation is a problem. So you create a program are well-intentioned, but I think one of the biggest
which attracts people like this. And they will come to mistakes they are making is assuming that they can
you,” he says. drive this, and that they should.”
“More likely they will come to you than you going [to
them and saying], ‘Listen, the Government has told me The international expert
that you are becoming a radical’, because then they’ll “Some of them are pious, others are not,” says Peter
say ‘F-off’ or they’ll go more into their hole and it’ll be Neumann, director of London’s International Centre
more hard to monitor them.” for the Study of Radicalisation, of the roughly 100 men

36 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


and women his organisation has spoken to who have is the effectiveness of those programs.”
left Western Europe to fight for Islamic State. Last month, a report into Australia’s counter-terror-
“Many have troubled histories – but some would have ism strategies recommended “significantly boosting”
had great prospects had they stayed in their countries.” the Government’s CVE program, with a focus on
Mr Neumann, speaking last month at the White expanding “community and public-private partner-
House Summit to Counter Violent Extremism, touched ships to better reach at-risk or radicalised individuals”.
on a somewhat overlooked aspect of the debate about It followed new funding in August last year for commu-
radicalisation: while marginalisation and a lack of nity groups to take on these service provider roles.
employment or education are common factors among Given social media is a key method of recruitment
young Western extremists, they are not always present. for Islamic State and similar militant groups, part of
“And because their personalities, backgrounds, the Government’s program is tailored towards helping
motivations and indeed experiences in Syria and Iraq people “develop the digital skills to critically assess
are so different, as governments, you should expect terrorists’ claims”. In the US, the State Department
that the people who may at some point come back has several social media accounts that disseminate
to your countries will pose very different types of anti-propaganda – calling out the hypocrisy of IS, for
challenges,” he said. example, using images and Arabic text.
Mr Neumann, who worked on the latest UN Security
Council resolution on foreign terrorist fighters, says “There is so much resistance to any kind
prevention should be a priority in countering the of government-designed ideas, or policy
threat of terrorism. concepts ... of radicalisation – these kids
“We know that wannabe fighters have arguments are going to resist it. They need to be done
with their parents, and we’ve seen – in a number of by the people who are more likely to have
cases – that parents have succeeded in making their
success in engaging young people.”
sons or daughters stay,” he says.
Associate Professor Anne Aly
“Parents are our strongest allies; they need to be
helped and empowered.” Last month, Attorney-General George Brandis
In regards to the social media approach, Mr Neumann flagged $18 million in funding for “real-time social
says “there’s a lot of talk about taking content off the media monitoring”, saying the Government must move
internet”, which he regards as worthwhile. beyond the idea that the internet was a lawless space.
“But we need to spend a lot more time, energy, effort “[Those measures] will include an active takedown
and creative brains to think about ways in which we can of terrorist websites and terrorist postings, and also
engage and challenge extremist ideas online.” funding of civil society organisations to establish
He says the internet is the most powerful tool ever counter-narratives to combat and contest terrorist
created for the dissemination of ideas – and that we narratives that are being mediated online.”
have “handed that tool to the terrorists”. A spokesperson for the Attorney-General’s depart-
The integration of communities in Western coun- ment said the new measures would include a report
tries is another important part of prevention, Mr online extremism tool and would see the Government
Neumann says. work with the Australian Communication and Media
“They sometimes felt that, because of who they are, Authority and others to get extremist propaganda
how they look and where they come from, they weren’t removed from the internet.
part of us, that they’d never succeed,” he says. The Government also plans to work with the states
“That didn’t turn them into terrorists by osmosis, and territories to focus on prison radicalisation, where-
but it made them open [to] an ideology which says by those behind bars are introduced to extremist views
that the West is at war with you and that you can’t be by their fellow inmates.
European and Muslim at the same time.
“If we’re serious about wanting to reduce the pool of
people who are susceptible to the messages and narrat-
ives of violent extremists, that’s where we need to start.”

The Government
Dr Clarke Jones, a former government national
security official and now visiting fellow at ANU, says
the Government should set up a centre for expertise to
liaise with the proposed community service providers.
“The way it has been going, there has been a lot
of money being thrown at these small, individual
programs, and I don’t think there’s been enough assess-
ment – firstly whether they are appealing to the right
people, whether the money is going to right place, what

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 37


Dr Clarke Jones says Australians convicted of trav- condemn the actions of Islamic State.
elling to fight with IS should not be incarcerated in But Mr Mallah says the Government, by seeking to
maximum security prisons, provided they have not designate Hizb ut-Tahrir a terrorist group, is shooting
committed serious acts of “barbaric” violence. itself in the foot.
That may just further radicalise them, he says, sug- “A lot of these youth look up to Hizb ut-Tahrir as a
gesting a diversionary course with a focus on reform way to say, ‘look, we don’t have to go overseas and join
and rehabilitation – particularly if the offender is young ISIS, we can call for the establishment of the caliphate
– would be better. from Australia’. Not that we want one here, but at least
“I disagree with the Government that they should be we can join a party that has those same views ... and
thrown into maximum security prison. And I say that call for a caliphate while living in peace in Australia.”
on good grounds – I am probably the only one that has “But when we do that, the Government cracks down
done empirical research in this area,” he says. and says, ‘we want to ban this and label it a terrorist
“I think the way we put [offenders] into Goulburn organisation’. That further subjugates, isolates,
Supermax or Barwon Prison, it doesn’t leave much segregates many of us in the Muslim community.
avenue for rehabilitation. So we need to revisit that “I believe Hizb ut-Tahrir is the last line of defence
because they will come out, and they will come [to stop] many of these youths who want to travel
out worse. overseas to join ISIS.”
“The focus is on punishment, and with the political
rhetoric that is going around at the moment I don’t The police
think that’s likely to change in the short term.” The Australian Federal Police established its first Islamic
Liaison Team in Melbourne in 2007, and that model is
The former terrorism suspect continuing to spread to other cities.
Zaky Mallah, 31, says he knows how these young The aim is to strengthen ties between the Islamic
Australians being drawn to the Middle East are feeling. community and law enforcement and build trust,
As a disaffected 19-year-old, he filmed a video of something Ali Kadri says gets eroded when politicians
himself authorities said contained threats to carry out make strong-armed statements about the threat of
an attack on government offices in Sydney and was Islamic extremism “for [their] own political gain”.
charged under counter-terrorism laws. The AFP says better relationships mean any tensions
He was kept in Goulburn Supermax for two years that arise from police operations, such as anti-terrorism
before being acquitted and now regularly meets with raids, can be worked through.
government and ASIO officials to offer his insight. The AFP hosts events like dinners to celebrate the
“I had my passport refused by ASIO back in 2002 ... I end of Ramadan, allowing local Islamic community
was very angry, very emotional,” he says. members to meet with AFP officials, and tries to counter
“Lucky I didn’t become a lone wolf. I was a very, very the online propaganda of foreign groups like Islamic
passionate, angry young man because my freedom was State by providing “alternative narratives” to the ones
taken away.” that appear in its dogma.
Mr Mallah, from Parramatta, says one of the A youth forum in Sydney, which aimed to improve
reasons young men find IS attractive is because it is a the image of the police among young Muslims, will also
“war machine”. be run in Brisbane, where a spokesperson said it would
“People love guns, they love armies, they love tanks “engage identified at-risk youth and influential persons
... it’s like a game,” he says. to build confidence in the relationships between the
“Except that this is a reality now. It’s no longer community and law enforcement”.
PlayStation or Xbox now – this is now the real thing.” Dr Jones from ANU says some of the law enforcement
Mr Mallah says trying convince a young person on programs being used are doing good work.
the path to radicalisation that going to Syria to fight for “Not all police programs are going to turn people
IS is a bad idea is extremely difficult. away – it will suit some and not others,” he says.
“In our faith, the caliphate must be established,” he “When police, whether it’s state or federal, have this
says, referring to Sunni Islam. sharp end or hard edge to their activities ... if I can use
“Now, I am a big believer in the Muslim caliphate the analogy, it’s very hard to punch someone in the face
[being] established, after the Ottoman empire, and then shake their hand,” he says.
however I don’t believe that the caliphate of ISIS is a “If they are doing raids, because they are unsure
legitimate one.” exactly of the activity that is going on, and police raids
Hizb ut-Tahrir, the Islamic political party, also are increasing, then it is very hard to also be the softie
supports the establishment of a caliphate – and has and the good guy.”
come in for staunch criticism from Prime Minister © ABC 2015. Reproduced by permission of the
Tony Abbott, who calls it “un-Australian” for “making Australian Broadcasting Corporation – Library Sales.
excuses for terrorist organisations”. Donoughue, P and Fahey, L (13 March 2015). ‘Why are
In a heated interview with the ABC last year, the young Australians being drawn to Islamic State?’, ABC News.
group’s spokesman, Wassim Doureihi, refused to Retrieved from www.abc.net.au/news on 17 February 2016.

38 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


RADICALISATION AND THE LONE WOLF:
WHAT WE DO AND DON’T KNOW
The factors that result in radicalisation are complex and varied, according
to terrorism expert and academic, Anne Aly

T
he events of the Sydney siege use of violence as a valid means of find support for their ideas among
this week evolved amid a furthering that cause. like-minded individuals.
torrent of speculation and The factors that result in radi- But there is no support for the
theorising about the motivations calisation are complex and varied. assumption that the internet accel-
and intent of the hostage-taker They include individual psychology, erates radicalisation and promotes
Man Haron Monis. Some media personal and group identity, demo- self-radicalisation without phys-
reporting during the Sydney siege graphics, individual circumstances ical contact.
even sought to compare the incident and contact with radicalising Research has also shown that
to America’s 9/11 and the London settings or influences, including theories and assumptions about
bombings in 2005. personal contact with recruiters or radicalisation are not supported in
The fact Monis forced his hos- influential people. many cases of violent extremism.
tages to raise the flag bearing the The marginalisation hypothesis that
Islamic testimony of faith certainly What about the internet? argues that radicalisation is a result
suggested that he may have been a Research suggests that the internet of individual frustration and aliena-
radicalised violent extremist acting plays some role in radicalisation tion does not explain why some who
with a political or ideological motive. though assumptions about the role have travelled to fight alongside the
of the internet in self-radicalising so-called Islamic State come from
The process of radicalisation individuals are overstated. Empirical well-adjusted family backgrounds
Violent extremism describes a situ- evidence supports the assumption and were well-integrated in the
ation in which the extreme belief that the internet creates more opp- broader community.
in a social, political or ideological ortunities to become radicalised and Contrary to popular belief,
cause is coupled with a belief that serves as a space for individuals to ideology and religion play a less
violence is necessary and justi-
fied as a means to further that
cause. Very few extremists actually Violent extremism describes a situation in which the extreme
become radicalised to the opera- belief in a social, political or ideological cause is coupled
tional phase where they carry out with a belief that violence is necessary and justified as a
acts of violence – but those that do means to further that cause.
can perpetrate horrendous crimes
in the name of their adopted cause.
Terrorism is a form of violent
extremism. Although there is no
universally agreed upon definition
of terrorism, most definitions
include elements of violence or the
threat of violence carried out for
the purpose of spreading fear (or
terror) and coercing governments
and societies.
There is still much we do not
know about the exact nature of
radicalisation to violent extremism.
That is because there is no singular
profile to explain who becomes a
violent extremist and why. Most
theories or models of radicalisation
concur that it is a process, not
necessarily linear, by which an
individual progresses through a
mild interest in a political, social or
ideological cause to accepting the

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 39


travel to abroad as a foreign fighter.
French gunman Mohammed
Merah, who killed seven people
in a shooting spree in France in
2012, claimed to be an associate of
Al Qaeda. In each of these cases,
including that of Monis, ideology
or politics certainly appear to be
the motivating force behind the
violence, suggesting the actors were
radicalised.
But there are also other factors
to consider when distinguishing
lone-wolf terrorist acts from similar
attacks with no apparent motivation
other than the actors own mental
capacity or tendency for violence.
Both Bibeau and Monis had criminal
records and a history of violent
behaviour.
Reports on Bibeau describe his
behaviour before the attack as
disturbing. Monis also exhibited
Very few extremists actually become radicalised to the erratic behaviour and could possibly
operational phase where they carry out acts of violence – have had a mental illness.
but those that do can perpetrate horrendous crimes in the Official reports on Brievik indi-
name of their adopted cause. cated that he developed paranoid
schizophrenia. Like Monis, Brievik
exhibited high levels of narcissism
important role in radicalisation. and bombings. In the 1980s and and grandiose delusions.
Current research by the Countering 1990s the strategy of using single What these cases tell us is that,
Online Violent Extremism Research individuals to perpetrate attacks was unlike the strategic model of
Program at Curtin University, with adopted by the white supremacist terrorism as a rational choice to
which I am involved, indicates that movement in the United States as carry out acts of violence in the
the emotional appeal to personal a way of thwarting government name of a cause, these modern-day
identity and group solidarity are crackdowns on their activities. lone-wolf terrorists may be more
far more significant factors in In fact, the term ‘lone wolfism’ like lone gunmen than terrorists.
radicalisation. was introduced by Tom Metzger, a
white supremacist. Anne Aly is Research Fellow in
The ‘lone wolf’ theory extremism, radicalisation and online
Over the past few years lone-
extremism, Curtin University.
Even with the growing body of actor attacks have become more
empirical research contributing to and more prevalent. Lone wolves
understanding radicalisation, cases are individuals who commit acts
such as that of Man Haron Monis of violence in support of a group, Aly, A (17 December 2014).
raise questions about whether indi- though they may have no formal Radicalisation and the lone wolf: what
vidual actors, known as ‘lone wolves’, links to that group. Examples we do and don’t know. Retrieved
are terrorists, violent extremists, include Canadian Michael Zehaf- from http://theconversation.com on
radicals or simply lone gunmen. Bibeau, Anders Breivik in Norway 23 February 2016.
We normally associate terrorism and Mohammed Merah in France.
with large-scale or mass casualty Each case is unique but all share
attacks such as 9/11 and the Bali the hallmarks of the lone actor.
bombings in 2002 – attacks of the Breivik demonstrated extreme
sort that require significant plan- right-wing political views and wrote
ning, resourcing and coordination a 1,500-page manifesto rational-
– often transnational. ising his attacks and his extremist
But the strategy of leaderless or ideology. Michael Zehaf-Bibeau,
single-actor terrorism dates back who shot a Canadian soldier earlier
to the 19th century anarchists who this year, had his passport cancelled
carried out political assassinations and was suspected of planning to

40 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


Understanding the radicalisation process
It is important to understand what the radicalisation process looks like, in order for families,
friends and communities to help prevent acts of violent extremism, according to this
Living Safe Together fact sheet from the Australian Government

The radicalisation process the Australian Government and the wider community

T
here is no single pathway of radicalisation have a responsibility to act.
towards violent extremism, as the process is
unique to each person. However, there are some Ideology
common elements in the experiences of most people In the process of radicalisation, ideology refers to a
who have become radicalised in Australia, regardless significant shift in the way a person views the world.
of their beliefs or motivations. Ideologies are only concerning if they advocate the
These elements include significant behavioural use of violence or other unlawful activity to promote
changes in major areas of a person’s life including particular beliefs.
ideology, social relations and criminal activity. If As the radicalisation process builds, some people
someone is radicalising towards violent extremism, will promote an increasingly strict and literal under-
changes can often occur in all three of these areas. standing of a given belief. They may increasingly use
A person’s behaviour must also become more ideological language that vilifies or discriminates others.
intense and extreme over time, when compared with In Australia, the small numbers of people who radicalise
that person’s previous or ‘normal’ behaviour. Their and promote violence often do not have a genuine
circumstances and environment should also be taken understanding of the ideology they claim to represent.
into account.
If there is a valid alternative explanation for the Increasing religious devoutness or
changes in behaviour, these changes should not be
considered a sign of radicalisation.
commitment to unconventional beliefs is
If a person radicalises to the point of promoting, not the same as radicalisation towards
threatening or using violence for an extremist cause, violent extremism.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 41


initiation or take an oath of allegiance to prove their
commitment.
Radicalisation is most often led by personal face-
to-face relationships, but there are some examples of
recruitment into radical groups over the internet. A
person may become part of an online community of
people who share their views and radicalise in a virtual
environment.

Criminal activity
During the radicalisation process, a person may start
to ‘act up’ to draw attention to their beliefs or send
a message to a specific group. These activities might
not cause serious harm but might still be illegal. They
might include actions like vandalism, minor property
damage, trespassing or illegal protesting.
More radicalised individuals might try to influence a
government or a section of the community by making
threats. If someone begins to support the use of violence
to promote a cause, radicalisation to violent extremism
becomes a serious concern.
Once a person becomes committed to violent action,
an actual violent attack may take place very quickly. If
a person considers unlawful and criminal activity to
be acceptable, they might also become increasingly
The use of the internet to view, download and suspicious and cautious. This might mean that they
spread material promoting violent extremism is often become nervous about the activities of governments,
part of the radicalisation process. Some people may security and intelligence agencies or law enforcement.
occasionally view such material out of curiosity, but
people who are radicalising tend to collect and share Identifying radicalisation
this material with others who hold the same beliefs. Most individuals begin the radicalisation process in
Hateful ideology and anti-social ideas might one of the three key areas – ideology, social relations or
be disturbing or offensive, but if someone has not criminal activity. This normally means that a person’s
committed to using violence or advocating the use of behaviour will noticeably change in one area first, and
violence, it should not be considered radicalisation to not across all three areas at the same time, but change
violent extremism. in these areas can happen very quickly.
Most people do not go all the way to becoming a
Social relations violent extremist. Something or someone might inter-
Many people join extremist groups for social reasons. rupt the radicalisation process, and the person does not
In Australia, people are most vulnerable to involvement get to the point of threatening or using violence, and
in violent extremism through the influence of close may even reject their radical ideas. When this happens
personal relationships. This is especially true for it is called disengagement. The active involvement of
young people. families, friends and the community in this process is
very important.
If a person radicalises to the point of
promoting, threatening or using violence More information
If you are concerned somebody you know may be radi-
for an extremist cause, the Australian calising, you can find more in the following information
Government and the wider community sheet (see next page): I am worried somebody I know is
have a responsibility to act. radicalising ... What can I do?
© Commonwealth of Australia 2015.
As people start to become radical, they will often
pull away from normal, mainstream activities and Living Safe Together. Understanding the radicalisation process.
friendship groups. There may be conflict with family Retrieved from www.livingsafetogether.gov.au on 17 February 2016.
and friends over political or ideological views.
At the same time, some people will start to interact
more often with smaller, tight-knit networks of
people who share their specific beliefs. Some extreme
groups may even require a person to go through an

42 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


I am worried somebody I know is
radicalising ... what can I do?
If you are worried somebody you know may be ‘radicalising’ there is a range of
strategies and services that may be of assistance. A fact sheet from the Australian
Government website, Living Safe Together
SOMEONE IS BECOMING These issues may include: specific issues have been identified
A RADICAL Confrontations with family and addressed, it may be that no

W
••
hen someone begins to members further intervention is required.
separate from their family, •• Changes in living or However, those who are under-
friends and community employment situation going the radicalisation process
or demonstrates a significant move •• Exposure to hateful attitudes often become increasingly diffi-
towards extreme beliefs and atti- and actions, either as a victim or cult to communicate with. They
tudes, that person may be in the early as an offender may refuse many well-intentioned
stages of the radicalisation process. If •• Overseas events that harm their attempts to help them. This can
that same person begins to advocate community, family or friends be hurtful but such refusals should
or promote the use of violence to •• Personal issues such as health not discourage those around them
achieve an ideological, political or problems, addiction, anger or from trying to intervene to help
religious goal, they may be radical- social problems the person.
ising towards violent extremism. •• Negative changes in friendships
and/or personal relationships WHAT ELSE CAN I DO?
OPEN COMMUNICATION •• Dropping out of school or If a person continues to promote
The best way to deal with the university, and the use of violence and other illegal
problem of radicalisation is to main- •• The experience of discrimination activities to achieve an ideological,
tain open communication with or social unfairness. religious or political goal, a stronger
the person. A positive relationship intervention may be required. The
and open communication can be You should not assume that any most helpful response involves
an effective intervention in itself. one of these problems will lead a early action by concerned families,
Even if someone decides to separate person to radicalise, but interven- friends and communities, with
themselves from close friends and tion and assistance from immediate further assistance from government
family, these people will still be family and the community to help services where needed, in the three
helpful to them in the future. deal with any of these types of issues areas of a person’s life impacted by
To help them, listen to their can be particularly effective in pre- radicalisation – social relations,
reasons for becoming involved with venting the radicalisation process. ideology and criminal activity.
a radical ideology or group. Try to
understand their perspective. It is There is a wide range of social
also important to separate their and health services available to all
behaviour from who they are as a Australians. These include:
person. Even if you disagree with •• Education and employment
what they are saying, it is important services
to find some way to let them know •• Health services
they are accepted and that you are •• Housing services
there to help them. •• Mental health and counselling
•• Refugee help services
EARLY INTERVENTION •• Religious and cultural centres
Early intervention is best. However, •• Telephone counselling services,
before you try to intervene, try to and
fully understand a person’s situa- •• Youth community centres.
tion and motivation.
A significant event, or a build-up If you cannot approach a service
of incidents, can trigger and/or provider directly, ask a friend,
accelerate the radicalisation process. colleague or your local doctor to
If issues can be dealt with before assist. These services are there to
they become large problems, this help all Australians deal with issues
may prevent a person from radical- and become active, contributing
ising further. members of their community. Once

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 43


Social responses •• Provide opportunities for are worried somebody you
If someone has withdrawn from them to participate positively know may be radicalising to the
close friends and family and is in intellectual, political or point of violence
spending significant amounts of philosophical discussions with •• Contact the police on 000
time with a group that is hostile people from a wide range of if someone you know has
towards others, a social response beliefs. threatened to harm you or
may be the most appropriate. someone else
Most people who have been Behavioural responses •• If you do not speak English
involved with extremist groups say Some people become involved in well, call the Translating and
that having a trusted adult to talk inter-group violence and other Interpreting Hotline on 13 14
to would have made the biggest illegal activities after becoming 50 and ask them to contact
difference in preventing them bec- socially involved with an extremist the National Security Hotline
oming involved. group. In other cases, someone or the emergency services and
already involved with low level interpret for you.
•• Connect them with encouraging crime may adopt ideological or
role models in their life such religious reasoning to justify their YOU ARE NOT ALONE
as respected family members, criminal actions. Many people and communities
coaches or teachers Strategies to change the person’s in Australia have helped to move
•• Involve local youth or social actions back to legal and non-violent people away from radicalisation to
workers methods may help in preventing violent extremism.
•• Assist in enrolling them in them from becoming radicalised. As a friend, family or community
education, training or member providing assistance, it is
employment •• Help them get involved in important to look after yourself as
•• Try to get them involved in community actions that well. Speak with trusted people in
positive social activities with peacefully address their political your community or other families
new peers. or social justice concerns who have had similar experiences,
•• Connect them to a positive role or contact a support service such as
Ideological responses model or mentor who under- Lifeline on 13 11 14.
Searching for meaning and belief is stands their behaviour and views
© Commonwealth of Australia 2015.
a part of human nature. However, •• Involve them in a behavioural
if someone does not have a strong program with a trained
background in the traditions of their counsellor Living Safe Together. I am worried
somebody I know is radicalising
beliefs, their incomplete knowledge •• Approach community or police
... What can I do? Retrieved from
makes them vulnerable to negative multicultural liaison officers to www.livingsafetogether.gov.au
ideas and radicalisation. Proper help you find appropriate ways on 17 February 2016.
guidance is important. to support the person
If an individual is embracing •• Help them comply with any
aggressive and hostile attitudes existing court appointments or
based on ideological (including rel- orders.
igious or political) teachings, then
an ideological response could help. THREATS OF HARM
In the event that someone indicates
•• Involve respected leaders to they are going to harm themselves
help provide guidance and or other people, this should be taken
give solid grounding in their seriously and must be acted upon
particular religious, political or immediately.
ideological tradition While this level of radicalisation
•• Find ways to get them involved is very rare, it is not helpful to the
in constructive community or person or the community to ignore
political activities that enable such behaviour.
them to put their values and If you are worried that some-
beliefs into positive action body you know may be radicalising
•• Provide guidance on how to to violent extremism, contact one
question ideas, texts and leaders of the numbers listed below. The
respectfully without resorting identity of callers will be kept
to violent attitudes confidential.
•• Help them interact respectfully
with others of different belief •• Call the National Security
systems and to accept difference Hotline on 1800 1234 00 if you

44 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


TOUGH IS NOT ENOUGH: TEN SMARTER
WAYS TO COUNTER VIOLENT EXTREMISM
Governments have generally invested much more in hard-edged military and
policing responses than in smarter and more sustainable ‘soft power’
approaches to countering violent extremism, writes Michele Grossman

M
ore than a decade of security-based trans- others do not. They find themselves disillusioned by the
national approaches to combating terrorist gap between the propaganda and the reality of foreign
activity and propaganda have demonstrated conflict. Rehabilitation for this latter group is essential.
that these alone are ineffective. Sometimes, security The Hayat program in Germany and the Aarhus pro-
measures can actually damage efforts to roll back the gram in Denmark are good examples of how to bypass
appeal and take-up of violent extremism. While such over-securitisation of returned fighters and instead
measures should be used in domestic contexts where offer counselling, support and rehabilitation. These
threats are critical or imminent, failure to accompany programs acknowledge the different reasons people
these with robust ‘soft power’ initiatives will prove fatal participate in foreign conflicts. These reasons include
in the longer-term. idealism, humanitarianism and peer pressure, as well
Business as usual is not an option. Here is what needs as a commitment to violent extremism as an ideology.
to change if we are to succeed in countering violent A key benefit of rehabilitating returnees is that they
extremism. have greater credibility with potential recruits and can
positively influence them.
1. Rethink current approaches to creating Embracing those who respond to rehabilitation
a counter-narrative demonstrates the principles of a supportive society.
Counter-narrative remains a key strategy in the struggle That in itself is a powerful message to undermine the
to diminish violent extremism’s appeal, especially for narrative of alienation, isolation and rejection that
young people. Governments around the world have terrorist recruiters promote.
been slow to respond to community needs and desires
regarding this. 3. Assertively challenge media’s role in
Most governments now accept that credible coun- fostering disunity and xenophobia
ter-narratives must be community – rather than govern- Some media reporting can severely undermine the
ment-generated. Yet many agencies have remained crucial message of social inclusion by amplifying
ambivalent about forming genuine partnerships with xenophobia, eroding trust and promoting social
community organisations that can develop authentic disharmony. The more coverage of terrorist-related
counter-narratives to reach and, more importantly, issues demonises Muslim communities at large, the
influence those at risk. more entrenched a victim mentality can become for
Communities have tuned out to the ‘negative those targeted by sensationalised coverage.
case’ made by standard counter-narratives. They are
seeking more ‘affirmative’ narratives that offer genuine
alternatives to hatred, enmity and terror.
Greater effort is needed to promote social inclusion
and community belonging for those who feel margin-
alised and disempowered. This involves focusing on
what binds us together rather than on what divides us.
An inclusive narrative must acknowledge the social
and political idealism that makes some young people
vulnerable to dimensions of terrorist messaging that
promise a new or better world. We must offer genuine
alternative forms of social activism and transformation,
which explicitly reject violence while seeking change.

2. Follow the lead of Germany and Denmark in


rehabilitating returned fighters
Counter-narratives are not just about what we say but
also what we do. This includes how we treat those
returning from foreign conflicts.
While it is clear that some foreign fighters return
home hardened and committed to violent extremism,

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 45


The sense of being ‘under siege’ by media is experi- violent extremism. Sustained effort to challenge
enced by the vast majority of peaceful Muslims around extremist messaging and representation through
the world. This produces frustration, humiliation and social media has been lacking, yet examples of effective
fear for these communities and can actually increase strategies do exist.
radicalisation leading to violent extremism. Programs such as All Together Now in Australia and
Such coverage also encourages attacks on ordinary Exit in Europe are leading the way in helping disengage
Muslims in diaspora communities because it appears those on pathways to extremism through social media.
to legitimise such actions. Those who experience such While in democratic countries censorship of social
targeting become more mistrustful of the democracies media remains untenable for excellent reasons, much
in which they live. This makes them less likely to more could be done, more nimbly and more creatively,
co-operate with authorities, even when they have to use social media as a counter-strategy.
important information or views to share. If, as some leading research has argued, terrorism is
The ‘us and them’ narratives of much media report- a communicative act, then we need to invest seriously
ing need to be confronted assertively, by governments in challenging and disrupting its messaging using the
as much as by communities. same communication channels and strategies.
A key element here is embracing multimodal commu-
4. Demystify the ‘special nature’ nication platforms that combine image, text and sound
of violent extremism to reach people in the same way that sophisticated
Part of the appeal of violent extremism is that it seems violent extremist propaganda routinely achieves.
to transcend ordinary criminal violence. It is character-
ised as a higher form of social action, in which forms of 6. Develop cognitive and emotional
social, religious and ideological power and aspiration skills to deconstruct extremist ideology
combine to reach beyond the ordinary and everyday. Education is a key to disrupting and dismantling ter-
An effective way to diminish the appeal of violent rorist ideology. In an age awash with information, media
extremism is to demonstrate that it is no different from and diverse forms of knowledge, many young people
other, more mundane violence. Stripped of its roman- struggle with the critical skills required to sift, sort and
ticised trappings as a higher calling, violent extremism evaluate it all.
should be treated as part of a broad-spectrum campaign These cognitive and emotional skills need to be
against violence of all kinds. comprehensively embedded in the curricula of schools
This approach exposes the ordinariness of violence, and universities. The goal must be to equip young people
its consequences and its failure to achieve the promise to evaluate and argue against the interpretations of
of social change that lures many young people. religion, history, politics and identity that are the bread
and butter of terrorist recruitment narratives.
5. Use social media more often, more Nor should we stop at the cognitive domain in
strategically and more creatively thinking about how best to skill up our youth to
Social media outlets have been exploited by those critique and reject violent extremist ideology. Terrorist
promoting online dimensions of radicalisation and messaging does not just target the head. It focuses in
increasingly sophisticated ways on the heart through
visual and aural communication.
Understanding the nexus between cognition
and emotion, and developing in young people the
understanding and ability to step back and analyse
before acting, should be a primary focus of any counter-
terrorism strategy.

7. Understanding the ‘supply chain’


means targeting recruiters
Recruiters are the middle-men and women in the
supply chain of violent extremism. Counter-terrorism
strategies have tended to focus on grassroots initia-
tives to prevent the take-up of violent extremism at
community level, while ‘disrupt and degrade’ efforts
have concentrated on the leadership of terrorist groups.
Focusing on remote figureheads may help score
largely symbolic goals for governments and taskforces.
But the middle-men and women, as always, are the
linchpin. Without them the leaders cannot marshal the
human resources to execute their strategies.
Targeting recruiters should not just be about

46 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


removing them from circulation – as a securitisation
model would propose. It should also aim to undermine
their influence with alternatives that speak to the
deeper needs and desires of those susceptible to their
influence. It is vital to work with communities to
identify, understand the strategies of and disempower
locally influential recruiters in order to nullify their
messages and reduce their reach and appeal.

8. Women are emerging as key


players in violent extremism
Programs to counter violent extremism tend to focus
on alienated, angry young men and the ways that
certain constructs of masculinity and violence may be
linked. But the complexities of contemporary violent
extremism have increasingly seen women emerge
as influential players – as spokespeople, recruiters,
enablers and in some instances as fighters. extremism than one that is narrowly focused on selected
While female fighters and violent extremists are representatives and structures.
hardly new, complex issues involving power, disen- These structures often exclude women, young
franchisement and agency for women are making people and voices of difference or dissent within
themselves felt in new ways. communities. These groups are precisely those we
Strategies relying on the assumption that women are need to engage if we are to mount credible alternatives
generally key influencers away from violent extremism to violent extremism. This means listening carefully
need to be rethought. While this may be true in some and genuinely to what communities are saying, and
instances, the increased involvement of women in adopting not only a ‘whole of government’ but a ‘whole
terrorist propaganda and social influence suggests a of community’ strategy.
more complex social and gendered territory. It raises
the question of whether we need to develop more 10. Help researchers by sharing key data
nuanced, gendered strategies of countering violent and information
extremism. National security expert Marc Sageman recently pub-
lished an essay calling for greater leverage of research
9. Community, community, community capacity by government agencies concerned with
All of the previous points require deep, long-lasting, countering violent extremism. Sageman focuses on
inclusive partnerships with communities at a grassroots ways in which government agencies’ reluctance to share
level. A signal weakness in transnational strategies to primary source data have stalled research capabilities –
date has been the tendency of government agencies an essential contribution to the evidence base on which
to focus relationship-building efforts on selected strategies, policies and programs are founded.
community leaders. Intelligence agencies have the empirical data but not
These leaders, while important in some instances, the methodological skills to analyse and interpret these;
are only part of the story. Communities are increas- researchers have the analytical and methodological
ingly telling us that an older generation of leaders skills but lack the data. The result is that breakthroughs
lacks the credibility, authority or authenticity to work in understanding terrorism and how to counter it are
effectively with younger community members who are being impeded.
radicalising towards violence. A smart strategy would develop security-sensitive
The central issue of trust – the single most important ways of giving researchers the data they need. This
element in brokering successful joint efforts between would help spur transnational effectiveness by enabling
governments and communities to mitigate violent researchers to develop the large, robust datasets and
extremism – goes well beyond developing trust theoretical underpinnings that are essential to serious
and engagement with a relatively small number inquiry in this space. Without this, research remains a
of community leaders. They may sometimes lack severely under-utilised resource.
the backing of critical elements within their own
constituencies. Michele Grossman is Professor and Director, Centre for Cultural
Diversity and Wellbeing, Victoria University.
We must be smarter, more expansive and more
multi-layered in developing community relationships.
A multi-level strategy – one that targets and builds
grassroots trust, transparency and engagement as Grossman, M (23 October 2014). Tough is not enough: ten
well as cultivating leadership roles and government smarter ways to counter violent extremism. Retrieved from
liaison – is far more likely to succeed in tackling violent http://theconversation.com on 22 February 2016.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 47


GEN Y JIHADISTS: PREVENTING
RADICALISATION IN AUSTRALIA
Following is the final chapter from an Australian Strategic Policy Institute report,
which presents nine policy recommendations on how to strengthen Australia’s
response to terrorists and extremist jihadists

POLICY RECOMMENDATIONS •• Deepen our exchanges on national security policy,


including responses to terrorism, countering
Australia’s counter-terrorism policies cover a violent extremism and online radicalisation
vast range of responses, from military operations •• Extend our dialogue on the challenges posed by the
in the Middle East to community resilience and phenomenon of foreign fighters
deradicalisation programs. Over more than a decade, •• Further strengthen intelligence cooperation
and with renewed emphasis since late 2013, there’s •• Establish a program of exchanges in counter-
been intense federal and growing state government terrorism policing, including on tactical response
policy activity. Here we recommend nine steps, in policing (Abbott 2015a).
some cases building on current or nascent programs,
to strengthen the Australian response to defeat This is a welcome measure, albeit one that challenges
terrorists and Gen Y extremist jihadists. Canberra’s dogged orthodoxy that Australia’s foreign
policy interests reside solely in Asia. Australia has a
1. Explain the reasons for Australia’s Middle deep interest in working with like-minded countries
East deployments more persuasively

A
not only on police and intelligence cooperation but
ustralia has a long history of fighting wars in the to strengthen policy thinking on domestic counter-
Middle East. Participation in those conflicts was radicalisation. That should prompt an expansion of
based on contemporary judgements about our the Prime Minister’s initiative to Germany, Belgium
strategic interest, but our policy focus on the region and the Scandinavian countries. These countries are
has been inconsistent and driven by crises. We have few in effect the new front line in dealing with a wave of
deep specialists in the Middle East in any part of public radicalisation sweeping Western societies. Substantial
administration. The strategic drivers of change in the international cooperation already takes place, most
Middle East are seldom publicly explained or related effectively with Australia’s Five Eyes intelligence
to the purpose of Australian military involvement. A partners – the US, the UK, Canada and New Zealand.
deeper knowledge of the region will produce more But the tempo needs to be stepped up if it’s to address
effective counter-terrorism policies. the demands of domestic security in an accelerating
The government should ensure that our diplomatic threat environment.
presence in the Middle East is sufficient to address the Australia could play an important international role
security interests that we claim to have there. This by gathering the best thinking on policy, intelligence
calls for modestly increased investment in Australian and policing on counter-terrorism and deradicalisation
diplomatic, intelligence and defence engagement in strategies. This should include more active sharing of
the region. The opening of an Australian diplomatic the profiles of individuals who have been radicalised,
mission in Doha, announced in May 2015, is a welcome as a foundation for thinking about necessary responses.
development. The Establishment of a Foreign Fighters Taskforce
Based on a developing deeper understanding of the under the auspices of the Australian Crime Commission
region, the Australian Government should continue the (ACC) is directed to strengthening international
practice adopted in recent years of making regular state- cooperation in this area. The Commission reported
ments to Parliament about Australia’s military operations to Senate Estimates hearings in May 2015 that it was
and counter-terrorism interests in the Middle East, “deploying officers in the coming year to Asia, the USA,
including setting out the strategic rationale for those Canada, Europe and the Middle East. We are doing that
activities. The government should also engage more in conjunction with the Australian Federal Police and
directly with online critics of Australian policy by using other partners internationally” (Dawson 2015, p.52). The
means such as ministers’ and senior officials’ speeches, ACC has coercive powers to compel individuals and
opinion pieces in newspapers and credible websites. organisations to provide information when questioned.
In September 2014 the ACC advised that they had
2. Urgently expand counter-terrorism “conducted 40 coercive hearings on 24 individuals” in
cooperation with key international partners the previous twelve months (Keenan 2014).
Following a late April 2015 visit to Paris, Prime Minister Of course, cooperation with European and North
Abbott and President Francois Hollande issued a joint American partners shouldn’t come at the expense of
statement promising to: regional engagement, but, with the exception of work

48 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


with Singapore and Japan, this engagement will be more linguistic minefield. In late 2014, Prime Minister Abbott
likely to focus on responses than on preventive measures. used the term ‘Team Australia’ to describe his sense
of the community effort needed to address terrorism:
3. Set a new basis for collaboration with
Australian Muslims I can’t make myself plainer. This is not about any
Writing in The Australian, Deakin University academic particular community, this is about crime and
Shahram Akbarzadeh (2015) set out the challenging potential crime ... [A]s far as I am concerned, every
reality for Australian Muslims: Australian is part of our team. Every Australian is part
of our team. The phrase I like is ‘Team Australia’ and
... let’s not forget Muslim community organisations the beauty of Team Australia is that anybody who is
have a big role to play. It may not be clear to some, prepared to show a commitment to this country is
but Australian Muslims are the first to suffer the part of it. (Abbott, 2014)
consequences of terrorism. The shame of having a
member of the faith commit acts of violence in the Although well-intended, arguably the language didn’t
name of religion, and the subsequent anti-Muslim resonate well with people who felt alienated from the
backlash, affect all Australian Muslims. They have community and unable to benefit from mainstream
a stake in addressing extremism and need to be community life. It’s notable that the Prime Minister has
acknowledged as partners for an effective counter- ceased to use the ‘Team Australia’ phrase. An important
terrorism strategy. way to restart this discussion would be for the Prime
Minister, perhaps with the involvement of the Leader
There’s no escaping this difficult situation. While the of the Opposition, to establish an advisory council on
vast majority of Australian Muslims have no sympathy counter-terrorism and the community.
for or engagement with Islamist radicals, the Muslim Any engagement program needs to operate on the
community must be part of a coherent national response basis that there is no single Muslim community in
to terrorism. Australia as a whole must find a way to work Australia; there are a variety of diverse communities
with Australian Muslims that’s creative and respectful based on different cultural and ethnic backgrounds and
and doesn’t blame the community for the behaviour of on different interpretations of Islam. Understanding
a tiny group. There’s no substitute for dialogue at many diversity and accommodating this to policy is key.
levels, but counter-terrorism presents something of a Initiatives to foster resilience within communities,

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 49


on Gallipoli, which was also a key strategic challenge a
century ago. The New South Wales History K-10 syllabus,
for example, allows for at least the possibility of classes
on contemporary security issues in the subject ‘Australia
and the modern world’ (Board of Studies, n.d.). This
should be broadened so that students can access balanced
information on the Middle East and terrorism, rather
than relying on radical online material.
How schools should deal with students showing
potential signs of radicalisation is an even more delicate
topic. Under the Living Safe Together initiative, the
Australian Government provides online advice aimed
at helping people to recognise whether an individual
may be radicalising (AGD, n.d. d). Counter-radicalisers
say that early intervention is advisable and point to the
range of social and health care services available to all
Australians but, aside from that, thinking about the
early intervention roles that schools could play is at a
promising but tentative stage
In May 2015, the Victorian Government announced
that it would provide $25 million over four years “to
enlist young role models to engage with people at risk
of radicalisation” (Tomazin 2015). The initiative will
involve the state’s education, youth, multicultural affairs
and police agencies and community representatives. It’s
as set out in Living Safe Together, should be continued. likely that more state government initiatives will follow.
We should also recognise that those disengaged and Although welcome, the proliferation of governments,
possibly more susceptible to extremism are not likely to agencies and groups all pursuing counter-radicalisation
listen to community leaders. There’s a need to ensure initiatives has the potential to create confusion.
that attempts to engage at-risk people filter down to the Given the complexity of this issue and the numbers
levels of the community where it is most needed, and of players involved, a useful approach would be for the
that these messages will indeed be accessible. Australian Government to raise this issue in discussions
An effort should be made to include young people at the Council of Australian Governments (COAG).
and others who aren’t part of formal community The COAG meeting of 17 April 2015 agreed that a
groups, as well as respected Muslim community leaders. new national counter-terrorism strategy would be
Empowering young members of Muslim communities developed. This would include developing strategies
in their religious and secular endeavours could enable to “work with communities to identify and manage
new forms of community leadership. A platform to individuals at risk of radicalisation”, and lead to further
tell ‘success stories’ of Muslim Australians might help discussion at a COAG retreat in July 2015 (COAG 2015).
to promote social cohesion amongst Muslims and The role of schools should be front and centre in this
non-Muslims nationally. A key task will be to build discussion. On 24 May 2015, it was announced that
trust within this group, which will happen only after a Education Minister Christopher Pyne is seeking to
sustained effort to discuss, listen and collaborate. develop a “national strategy to combat radicalisation
and extremism in schools” and that this is to be
4. Engage schools in a practical discussion discussed with state education ministers. This is a
about terrorism and counter-radicalisation necessary and welcome development.
A younger group of people is being attracted to violent
jihad in the Middle East. The internet and social 5. Start a discussion with the media
media may just be the latest communications channel on reporting terrorism
available to terror groups, but they are particularly Australian media reporting of the December 2014 Lindt
effective means to direct unfiltered messages to specific Cafe siege in Sydney was sensibly restrained, and local
groups at the same time as allowing communication media outlets refused to broadcast demands made
between like-minded people. As jihadists get younger, by the gunman. The media’s use of ISIL propaganda
our attention must turn to what schools teach and videos, particularly of purported executions, has also
how they manage at-risk students. become noticeably more restrained in recent months.
On the curriculum front, schools face substantial time This approach reflects the difficult balance that media
pressures to teach all necessary subjects. But there’s surely organisations try to keep between informed reporting
a case to start discussing Australia’s contemporary role and inflaming tensions. There are many examples
in the Middle East – perhaps as a follow-on to studies in which reporting has been less than helpful, either

50 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


by broadcasting the latest ISIL video or by using agencies and community groups. Early and important
headlines that generate community anger rather than work is already underway in this area, but much more
inform people. needs to be done.
Under its mandate for ‘promoting good standards of An important starting point to think through what’s
media practice’ the Australian Press Council developed needed to manage people being diverted from radi-
advisory guidelines for the use of religious terms in calisation would be to bring security and social services
headlines: delivery agencies together to discuss cooperation. These
The Press Council advises newspapers and magaz- are different worlds, so substantial give and take will be
ines to be careful about using in their headlines terms needed to develop a shared understanding. The value
for religious or ethnic groups that could imply that of a successful diversion program would be great, given
the group as a whole was responsible for the actions the massive costs of policing operations to thwart terror
of a minority among that group. The use of the words plots and the human and social costs of terrorist acts.
‘Islam’, ‘Islamic’ and ‘Muslim’ in headlines on reports
of terrorist attacks has caused problems both for the 7. Combat online propaganda
Muslim community in Australia and the Australian Online propaganda produced by ISIL and other
media. (APC, 2004) terrorist groups presents a different and more serious
threat than al-Qaeda’s slower and stodgier efforts of
In addition to restating that advice, an updated set of a decade ago:
guidelines should consider: •• Production values are higher, and the products are
•• Appropriate terminology to describe ISIL designed to appeal to people with a false image of
•• Handling strategies for using ISIL’s and other the adventure that awaits a radicalised recruit
terrorist organisation’s propaganda (both violent •• Response times in producing propaganda are
material and non-violent recruitment videos) faster, so producers can take advantage of current
•• The suitability of adapting media standards for developments being reported by mainstream media
reporting on suicide and depression to reporting •• Online presentation is not diluted by media outlets
about individuals vulnerable to radicalisation and can easily be switched to other sites if internet
•• The reporting of matters relating to the Muslim service providers or governments block distribution
community in the context of terrorism. •• A receptive audience seeks the product and can be
reached globally
The best way to develop a new advisory guideline •• The online environment facilitates networking and
would be for the government to start an open dialogue the broader dissemination of the propaganda.
with a wide range of media representatives and,
ultimately, for the Press Council to codify its own These qualities of the online environment make
recommendations. Because of our engagement with combating ISIL propaganda more challenging.
government agencies and with the media, ASPI is However, the internet’s just a channel: the key task for
prepared to assist in further developing this proposal. counter-terrorism is to undermine the content of the
propagandist’s message.
6. Develop individual case management A major ASPI study by Roslyn Richardson, Fighting
strategies for at-risk people fire with fire: target audience responses to online anti-
The government’s Living Safe Together initiative, which violence campaigns, found in November 2013 that
began in August 2014, emphasises the importance of government online counter-radicalisation campaigns
early identification and early intervention to assist were unlikely to succeed (Richardson 2013). Based
people who are on a path to radicalisation and divert on detailed research with young Muslims in Sydney,
them onto more productive paths. Richardson found that young people were unlikely
The Living Safe Together website points to to trust governments, didn’t regard them as being on
“Intervention programmes [that] may include youth the same side, and didn’t consider that CVE strategies
diversion activities, healthcare initiatives, mentoring, addressed issues of most importance to them. The
employment and educational pathway support and report recommended that governments assist efforts
counselling” (AGD, n.d. e). This reflects a broadening of underway within the Muslim community to develop
the government’s approach to cover counter-terrorism the community’s own alternative online material
mitigation strategies that include social services opposing radicalisation. This approach needs to be
delivery. This approach offers promising possibilities, complemented by face-to-face engagement, a process
but a great deal of additional work will need to be done of trust building, recognition of the importance of
to define how an intervention process might work, selecting the right language to describe the problem,
where authority to decide to intervene will reside, and and an understanding of the significant differences
how to handle an individual from the point of inter- of attitude that exist within the Muslim community.
vention. The handover point from law enforcement to Where government offers content online, it needs to
social service agencies will need careful definition, as ensure that this material has the quality, timeliness, reach
will the nature of cooperation between federal and state and attention to language that’s needed to engage and

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 51


persuade a sceptical audience. For a number of years, the and especially what the system suggests that people do,
government, with the Attorney-General’s Department at each level to see how useful the public finds them.
leading the way, has assisted in developing thinking Finally, a public awareness campaign communicating
about online counter-radicalisation. The need now is any changes to our terrorism advisories would be
to deploy a range of responses able to rapidly change helpful. This should include social media. The Australian
to meet new propaganda challenges and to find ways to Government should have a national security Facebook
build community acceptance. Harnessing the expertise page and Twitter account to provide information on
of communication, marketing and social media experts terrorism warnings. We set out the case for these changes
could facilitate this. Some $21 million has been spent in more detail in our study, Sounding the alarm: terrorism
so far on limiting the impact of terrorist narratives on threat communications with the Australian public (Bergin
domestic audiences (AGD, n.d. b). & Murphy, 2015).

8. Revise the public terrorism advisory system 9. Explain how government agencies
Anthony Bergin and Clare Murphy (2015) have use counter-terrorism powers
pointed out the following about Australia’s threat and The Australian Parliament has given law enforcement
warning system. and intelligence agencies extensive new powers to deal
Our usually classified terrorism threat level and with the terrorism threat. While some measures have
public alert level were both raised to ‘high’ in September been controversial, experience to date has shown these
2014. This was the first time that ASIO made the changes to be necessary and proportional. Australian
threat level public and raised it to ‘high’: we’d been on agencies are also deeply engaged in counter-terrorism
medium level for 13 years. There was some confusion operations here and overseas and conduct many
about how the public was supposed to react to the cooperative activities with international partners.
raised alert level, and about the role that terrorism However, community support for these powers and
advisories play in our counter-terrorism machinery. actions is essential for maintaining confidence in the
Five immediate changes could help. First, it would existing arrangements and for arguing the case for any
be sensible to collapse the two systems into one future additions or expansions to powers.
public alert system, decided by the Director-General Australian governments, through COAG, should
of ASIO, that can be made public and accompanied promote confidence in our agencies by presenting
by an unclassified narrative. Second, there should be a 12-monthly public update on the use of counter-
a sunset clause that mandates the expiry of a raised terrorism powers in Australia. That report should
level after six months unless there’s evidence that include all information required by law (for example,
it shouldn’t be changed. Third, a generic alert level reporting on the use of delayed notification warrants
system isn’t appropriate for a country as large as and the data retention scheme) but also detailed infor-
Australia. Our terrorism warning system should offer mation on relevant matters such as the use of control
more advice about likely areas at increased risk. This orders, passport cancellations, numbers of continuing
would strengthen the system as an effective tool for investigations, individuals referred for diversion
communicating useful information to the public. programs, international cooperation activities, relevant
Our fourth suggestion is that the language used financial actions, court outcomes, and reporting
for terrorism advisories shouldn’t be arbitrary or about police and military operations. Of course, the
ambiguous. It would be prudent to test the narratives, report should respect the privacy of individuals and
the security of intelligence and operations. Beyond
that, it should present a comprehensive explanation
of how and why the agencies have used their powers,
and what’s been done in the Australian public’s name
to suppress terrorism here and overseas.
Authors: Anthony Bergin, Michael Clifford, David Connery,
Tobias Feakin, Ken Gleiman, Stephanie Huang, Grace
Hutchison, Peter Jennings, David Lang, Amelia Long, Clare
Murphy, Simone Roworth, Rosalyn Turner, Samina Yasmeen.

© The Australian Strategic Policy Institute Limited 2015.

Jennings, P, editor (June 2015). Gen Y jihadists:


preventing radicalisation in Australia, Chapter 5, pp. 51-56.
Retrieved from www.aspi.org.au on 22 February 2016.

52 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


EXPLORING
ISSUES

WORKSHEETS AND ACTIVITIES


The Exploring Issues section comprises a range of ready-to-use worksheets featuring
activities which relate to facts and views raised in this book.
The exercises presented in these worksheets are suitable for use by students at
middle secondary school level and beyond. Some of the activities may be explored
either individually or as a group.
As the information in this book is compiled from a number of different sources,
readers are prompted to consider the origin of the text and to critically evaluate the
questions presented.
Is the information cited from a primary or secondary source? Are you being presented
with facts or opinions?
Is there any evidence of a particular bias or agenda? What are your own views after
having explored the issues?

CONTENTS
BRAINSTORM 54
WRITTEN ACTIVITIES 55
MULTIPLE CHOICE 56

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 53


BRAINSTORM

Brainstorm, individually or as a group, to find out what you know about terrorism and violent extremism.

1. What is terrorism?






2. What is violent extremism?







3. What are the distinctions between terrorism and violent extremism?








4. What is radicalisation?






54 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


WRITTEN ACTIVITIES

Complete the following activity on a separate sheet of paper if more space is required.

Since 2001, Australia has enacted over 60 counter-terrorism laws. These laws contain
a wide range of criminal offences and grant broad investigative powers to the police
and intelligence agencies. Many of these laws infringe upon fundamental human rights
by restricting the rights to liberty, privacy, and the freedoms of speech, movement, and
association.
Human Rights Law Centre (2015), Australia’s human rights score card: counter-terrorism.

Consider the above statement, and in the space below list the pros and cons of at least three of
Australia’s most controversial counter-terrorism laws. In your response, consider whether or not certain
these laws should be repealed, or the powers invested in them sustained or increased, and explain why.








There is no single pathway of radicalisation towards violent extremism, as the


process is unique to each person. However, there are some common elements in the
experiences of most people who have become radicalised in Australia, regardless of
their beliefs or motivations.
Living Safe Together (Australian Government), Understanding the radicalisation process.

What are the common elements in the experiences of most people who have been radicalised in Australia?
What non-violent measures can the Australian community take to counter the radicalisation of young
Australians and prevent them from participating in violent extremism or terrorist acts?








Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 55


MULTIPLE CHOICE

Complete the following multiple choice questionnaire by circling or matching your preferred responses.

1. Match the following terms to their correct definitions.


a. Control order 1. Beliefs and actions of people who support or use violence to achieve ideological,
religious or political goals.
b. Preventive detention 2. Use or threatened use of violence in order to achieve a political, religious, or
ideological aim.
c. Radicalisation 3. Detaining people in police custody when there is a threat of an imminent terrorist
attack or immediately after a terrorist attack.
d. Terrorism 4. Court-issued order intended to restrict a person’s liberty to aid in the prevention a
terrorist attack or if the person has trained with a listed terrorist organisation.
e. Violent extremism 5. Occurs when a person’s thinking and behaviour become significantly different from
how most of the members of their society and community view social issues and
participate politically.

2. Which of the following are considered to be terrorist organisations by the Australian government?
(circle all that apply)
a. Abu Sayyaf Group
b. Al-Qa’ida
c. Boko Haram
d. Hamas’ Izz al-Din al-Qassam Brigades
e. Hizballah’s External Security Organisation
f. Islamic State
g. Jemaah Islamiyah
h. Lashkar-e-Tayyiba

3. Which of the following are NOT among the 5 listed National Terrorism Threat Levels?
(circle all that apply)
a. Certain
b. Inevitable
c. Expected
d. Probable
e. Improbable
f. Not expected
g. Unexpected

4. Since 2001, how many Australians have been killed in terrorist attacks in public places?
a. Under 10
b. Under 100
c. 100-200
d. 1,000-,2000
e. 3,000-4,000
f. 5,000-6,000

MULTIPLE CHOICE ANSWERS


1 – a = 4, b = 3, c = 5, d = 2, e = 1 ; 2 = a, b, c, d, e, f, g, h ; 3 = b, e, g ; 4 = c.

56 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


FAST FACTS
hh Of the last 16 years (as at 2015), the worst year for hh Although Australia’s terrorism threat level is set at
terrorism was 2014 with 93 countries experiencing an probable, the likelihood of an individual being killed
attack and 32,765 people killed (Institute for Economics or wounded from a terrorist attack in this country is
and Peace, Global Terrorism Index 2016). (p.2) extremely low. Terrorist attacks in Australia have claimed
hh Over 90 per cent of all terrorism attacks between 1989 the lives of only three victims in the last two decades
and 2014 occurred in countries engaged in violent (ibid). (p.14)
conflicts (ibid). (p.2) hh Australian fears are necessarily shaped by memories
hh Ninety-three per cent of all terrorist attacks between of the 2002 Bali terrorist attacks in which 202 people,
1989 and 2014 occurred in countries with high levels of many of them Australian, were killed. Since Bali, ter-
state-sponsored terror – extra-judicial deaths, torture rorist attacks overseas have claimed the lives of more
and imprisonment without trial (ibid). (p.4) than 110 Australians (ibid). (p.14)
hh Terrorism is violence aimed at achieving political or hh Countering violent extremism is a shared effort bet-
ideological objectives. Attacks can be centrally directed ween all Australian governments. The objective of the
from a structured organisation or network or by indi- countering violent extremism programme is to combat
viduals acting without any direct external control (the the threat posed by home-grown terrorism and to
so called ‘lone wolf’) (Commonwealth Government, discourage Australians from travelling overseas to par-
Terrorist Threat Worldwide, Smartraveller). (p.5) ticipate in conflicts (Attorney-General’s Department,
hh There is a continuing and longstanding threat of Countering violent extremism). (p.18)
terrorist attack across the world. Since 2000, there hh Since 2001, Australia has enacted over 60 counter-terr-
has been a nine-fold increase in the number of deaths orism laws. These laws contain a wide range of criminal
from terrorism, rising to 32,685 in 2014. The countries offences and grant broad investigative powers to the
with the most number of attacks include Iraq, Nigeria, police and intelligence agencies. Many of these laws
Afghanistan, Pakistan and Syria (ibid). (p.5) infringe upon fundamental human rights by restricting
hh Since 2001, over 100 Australians have been killed in the rights to liberty, privacy, and the freedoms of speech,
terrorist attacks in public places. These attacks include: movement, and association (Human Rights Law Centre,
the attack in Tunis on the Bardo National Museum Australia’s 2015 UPR-NGO Coalition, Fact Sheet 7). (p.28)
on 18 March 2015; the attack in Nairobi on Westgate hh Violent extremism is the beliefs and actions of people
Mall in 2013; the attacks in Jakarta on the Marriott and who support or use violence to achieve ideological, reli-
Ritz Carlton Hotels in 2009; the attacks in Mumbai on gious or political goals. This includes terrorism and other
the Taj and Trident Hotels in 2008; Bali bombings of forms of politically motivated and communal violence
2005; the Jakarta Marriott bombing of 2003; the Bali (Living Safe Together, What is violent extremism?). (p.34)
nightclub bombings of 2002; the World Trade Center hh There are many different types of violent extremism.
attacks in New York in 2001 (ibid). (p.7) Motivations are varied and many usually relate to
hh Over the past decade, Australians have been kidnapped particular ideologies (for example, interpretations of
and held hostage by terrorists in Somalia, Syria, the political movements or religious beliefs), issues such
southern Philippines and Burkina Faso. Substantial as environmental or economic concerns, or ethnic or
ransoms have been demanded for their release. The separatist causes. People can also be motivated by more
Australian Government’s longstanding policy is that it than one issue (ibid). (p.34)
does not make payments or concessions to kidnappers. hh Radicalisation happens when a person’s thinking and
The Australian Government considers that paying a behaviour become significantly different from how
ransom increases the risk of further kidnappings, incl- most of the members of their society and community
uding of other Australians (ibid). (p.7) view social issues and participate politically. Only small
hh Australia’s Counter-Terrorism Strategy outlines the cur- numbers of people radicalise and they can be from a
rent terrorist threat that Australia is facing, and what our diverse range of ethnic, national, political and religious
governments are doing to counter it. It focusses on five groups (Living Safe Together, What is radicalisation?). (p.35)
core elements: challenging violent extremist ideologies, hh As a person radicalises they may begin to seek to change
stopping people from becoming terrorists, shaping the significantly the nature of society and government.
global environment to counter terrorism, disrupting However, if someone decides that using fear, terror or
terrorist activity within Australia and having effective violence is justified to achieve ideological, political or
responses and recovery should an attack occur (Australian social change – this is violent extremism (ibid). (p.35)
National Security, Frequently asked questions). (p.12) hh The factors that result in radicalisation are complex
hh More Australians have died at the hands of police (law- and varied. They include individual psychology, per-
fully or unlawfully) in ten years (50 at least from 2006 to sonal and group identity, demographics, individual
2015) or from domestic violence in just two years (more circumstances and contact with radicalising settings or
than 318 in 2014 and 2015) than from terrorist attacks in influences, including personal contact with recruiters
Australia in the last 20 years (Austin, G, Australians have or influential people (Aly, A, Radicalisation and the lone
little to fear from terrorism at home – here’s why). (p.14) wolf: what we do and don’t know). (p.40)

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 57


GLOSSARY
Control order orders only where there is a threat of an imminent ter-
A person can be subject to a court-issued control order if rorist attack or immediately after a terrorist attack has
it substantially assists in preventing a terrorist attack or if occurred. Individuals can be detained if it is necessary
the person has trained with a listed terrorist organisation. A to prevent an imminent terrorist act or if it is likely vital
control order can stop a person from: being in certain areas evidence in the aftermath of a terrorist act will be lost.
or leaving Australia, communicating or associating with Under Commonwealth law, the maximum amount of
certain people, owning or using certain articles, carrying time a person can be preventatively detained is 48 hours.
out certain activities, including work, accessing certain Under state and territory laws, a person can be detained
forms of technology, including the internet. A control for up to 14 days.
order can require a person to: remain in premises between
Radicalisation
certain times of each day, wear a tracking device, report
Radicalisation happens when a person’s thinking and
to someone at a certain time and place, allow themselves
behaviour become significantly different from how most
to be photographed.
of the members of their society and community view social
Counter-terrorism powers issues and participate politically. Only small numbers of
Incorporates the practice, military tactics, techniques, people radicalise and they can be from a diverse range of
and strategy that government, military, law enforcement, ethnic, national, political and religious groups. If someone
business, and intelligence agencies use to combat or decides that using fear, terror or violence is justified to
prevent terrorism. achieve ideological, political or social change – this is
violent extremism.
Declared area offence
It is an offence for a person to intentionally enter, or remain Terrorism
in, a declared area in a foreign country where the person The use or threatened use of violence (terror) in order to
is reckless to the fact that the area is a declared area. The achieve a political, religious, or ideological aim.
maximum penalty for this offence is 10 years imprison-
Terrorist act
ment. The Minister for Foreign Affairs may declare an
An act, or a threat to commit an act, that is done with
area in a foreign country if satisfied that a listed terrorist
the intention of coercing or influencing the public or
organisation is engaging in a hostile activity in that area.
any government by intimidation to advance a political,
Financing terrorism religious or ideological cause, and the act causes: death,
Involves the intentional collection or provision of funds serious harm or endangers a person; serious damage to
and recklessness as to whether the funds will be used to property; serious risk to the health or safety of the public;
facilitate or engage in a terrorist act. It does not matter or seriously interferes with, disrupts or destroys critical
if a terrorist act does not occur, or if the funds will not infrastructure such as a telecommunications or electricity
be used for a specific terrorist act or for more than one network. A person found guilty of committing a terrorist
terrorist act. act could face up to life imprisonment.

Islamism Terrorist act offence


Islamic revivalist movement, characterised by moral con- It is an offence to: commit a terrorist act; plan or prepare
servatism, literalism and the attempt to implement Islamic for a terrorist act; finance terrorism or a terrorist; provide
values in all spheres of life. or receive training connected with terrorist acts; possess
things connected with terrorist acts; or collect or make
Lone wolves documents likely to facilitate terrorist acts. A person
Individuals who commit acts of violence in support of a may be convicted of a terrorist act offence if the person
group, though they may have no formal links to that group. intends to commit one of these offences or if the person
National security was reckless as to whether his or her actions would amount
The requirement to maintain the survival of the nation to a terrorist act. A person may still commit a terrorist act
state through economic, military and political power and offence even though a terrorist act did not occur.
the exercise of diplomacy. Security threats may involve
Terrorist organisation
nation states or terrorist organisations, narcotic cartels
Defined as an organisation that: a court finds is either
and multi-national organisations.
directly or indirectly engaged in preparing, planning,
National Terrorism Threat Advisory System assisting in or fostering the doing of a terrorist act; or an
A scale of five levels use used by the Australian Govern- organisation that has been listed by the Government.
ment to provide advice about the likelihood of an act of
terrorism occurring in Australia. The levels are: certain,
Violent extremism
Beliefs and actions of people who support or use violence
expected, probable, possible, and not expected.
to achieve ideological, religious or political goals – this
Preventative detention includes terrorism and other forms of politically moti-
The police can detain people under preventative detention vated and communal violence.

58 Countering Terrorism and Violent Extremism Issues in Society | Volume 410


WEB LINKS

Websites with further information on the topic


Attorney-General’s Department www.ag.gov.au/NationalSecurity
Australian Human Rights Commission www.humanrights.gov.au
Australian National Security www.nationalsecurity.gov.au
Australian Strategic Policy Institute www.aspi.org.au
Department of Foreign Affairs and Trade www.dfat.gov.au
Human Rights Law Centre www.hrlc.org.au
Institute for Economics and Peace www.economicsandpeace.org
Living Safe Together www.livingsafetogether.gov.au
Lowy Institute for International Policy www.lowyinstitute.org/issues/terrorism
Smartraveller www.smartraveller.gov.au

ACKNOWLEDGEMENTS
The publisher is grateful to all the contributors to this book for granting permission to reproduce their works.

COPYRIGHT DISCLAIMER
While every care has been taken to trace and acknowledge copyright the publisher tenders its apology for any
accidental infringements or where copyright has proved untraceable. The publisher would be pleased to come to
a suitable arrangement with the rightful owner.

ILLUSTRATIONS AND PHOTOGRAPHS


Photographs and illustrations courtesy of iStock, except pages 14, 15, 27, 29, 45 and 52 © Simon Kneebone; and
pages 37 and 41 © Don Hatcher.

THANK YOU
hh Attorney-General’s Department
hh Australian Strategic Policy Institute
hh Australian Government (Australian National Security, Living Safe Together).

DISCLAIMER
The Spinney Press is an independent educational publisher and has no political affiliations or vested interests with any persons or organisations whose
information appears in the Issues in Society series. The Spinney Press seeks at all times to present variety and balance in the opinions expressed in
its publications. Any views quoted in this book are not necessarily those of the publisher or its staff.
Advice in this publication is of a general nature and is not a substitute for independent professional advice. Information contained in this publication
is for educational purposes only and is not intended as specific legal advice or to be used to diagnose, treat, cure or prevent any disease. Further,
the accuracy, currency and completeness of the information available in this publication cannot be guaranteed. The Spinney Press, its affiliates and
their respective servants and agents do not accept any liability for any injury, loss or damage incurred by use of or reliance on the information made
available via or through its publications, whether arising from negligence or otherwise.

Issues in Society | Volume 410 Countering Terrorism and Violent Extremism 59


INDEX

A hotline 17 offence, definition of 23


Afghanistan 2, 3, 5, 7 states and territories 11, 17 regional threats 8-9
Australian Citizenship Act 31, 32 what I can do East and West Africa 8
emergency, what to do in 21-22 Europe 8-9
C suspicious behaviour, reporting 21 Middle East 8, 48
citizenship 30-31, 32-33 National Terrorism Threat Advisory North Africa 8
dual 15, 31, 32-33 System 10-11, 52 South and West Asia 7
laws 30-31, 32-33 threat levels 11, 12-13, 16 South-East Asia 7
revocation of 15, 31, 32-33 Nigeria 1, 2, 5, 8 media, reporting of 45-46, 50-51
control orders 26, 27 threats
counter-terrorism 12-13 P government response to 11, 15
Australia’s counter-terrorism Pakistan 2, 3, 5, 7 mitigation 6-7
strategy 12, 16-19 preventative detention 24 nature of 5
cooperation, international 48-49 propaganda, online 18, 46, 51-52 worldwide 5-9, 12-13
laws 17, 23-26, 27, 28-29, 30-31, see also radicalisation, online terrorists
32-33 groups 1, 3, 4
R
National Counter-Terrorism Plan Al-Qa’ida 2, 3, 4, 5, 8, 9, 16, 34
radicalisation 16, 39
16, 19 Australians, young 36-38 Boko Haram 1, 2, 3, 4, 8, 9
policies 15, 48-52 causes of 36-38, 39-40 Hizb ut-Tahrir 38
powers 29, 52 combating 36-37 Islamic State (ISIL) 1, 2, 3, 4, 5,
criminal activity 42 communication, open 43 8, 9, 10, 16, 36-38, 50-51
cyber security 19 counter-radicalisation 50 Taliban 2, 3, 4
definition of 35 ‘lone wolves’ 39-40
D organisations
data retention see also metadata 19, 27 deradicalisation 18
early intervention 43 definition of 23-24
declared area offence 17, 26, 28
identifying 42, 43-44 listed (Australia) 9
detention orders 27
online 18, 39-40 transport and infrastructure 19
F preventing 48-52 travel advice, overseas 6, 9, 12-13
fighters process 35, 41-42 Turkey 2, 4, 5, 8
female 47 responses to someone radicalising V
foreign 5, 15, 26, 28, 30-31, 43-44 violence
32-33, 45 schools, engaging 50 ethno-nationalist/separatist 35
Foreign Fighters Act 28-29 threat of 36-38 ideological 34
foreign incursions and recruitment issue-based 35
offences 26 S
social media 46 violent extremism
France 2, 4, 5, 14 Australia, in 16, 34
freedom of expression 35 social relations 42
Syria 2, 3, 4, 5, 7 community relationships 47
G countering 18, 19, 45-47
Global Terrorism Index 1-4 T definition of 18, 34-35
terrorism demystification of 46
H act, definition of 23 females engaged in 47
human rights 27, 28-29 advocating, offence of 28-29 motivations for 34
attacks propaganda 46 see also
I Australia, in 14-15, 16, 17 propaganda, online;
ideology 41-42 harming Australians 7 radicalisation, online
extremist 17, 46 targets 6, 10 recruiters, targeting 46-47
internet see propaganda, online; types of 5-6, 10-11
radicalisation, online correlates of 3, 4 X
Iraq 1, 2, 3, 5, 8 deaths from 1-4, 5 xenophobia 45-46
M definition of 5
Martin Place siege 14, 30, 39 drivers of 3, 4
metadata 15, 19 see also data retention economic impact of 2, 4
Muslims, Australian 14, 15, 49-50 fears of, Australian 14-15
financing of 25-26
N global levels of 1-4, 5-9
national security, Australian home-grown (Australia) 30-31
agencies 17, 18, 20 investigating, offences 25

60 Countering Terrorism and Violent Extremism Issues in Society | Volume 410

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