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Resolution 2221 (2018)
Counter-narratives to terrorism
1. The Parliamentary Assembly reiterates
in the strongest terms its condemnation of all acts of terrorism, recalling
its previous resolutions in relation to terrorism, in particular Resolution 2090 (2016) on
combating international terrorism while protecting Council of Europe
standards and values, Resolution 2091
(2016) on foreign fighters in Syria and Iraq and Resolution 2113 (2016) “After
the Brussels attacks, an urgent need to address security failures
and step up counter-terrorism co-operation”. It also refers to its
recent Resolution 2190
(2017) on prosecuting and punishing the crimes against
humanity or even possible genocide committed by Daesh.
2. The Assembly notes that, to date, the international community’s
response to terrorism has mainly taken the form of security-based
counter-terrorism measures. But such measures have not been sufficient
to prevent the phenomenon of “foreign fighters”, radicalisation
or the spread of violent extremism, including by terrorists acting
alone. The creation of new measures, in the form of positive alternative
narratives to extremism, is necessary to combat this evolving threat.
3. The radicalisation process is changing as the terrorist threat
evolves, and as technology advances. The Assembly stresses that
“real world” exposure to violent extremist discourse continues to
pose a threat and should not be overlooked. The internet has transformed
the way terrorist organisations reach and radicalise people with
terrorist narratives – used to convey violent extremist ideology,
values and justifications – easily accessible to a large global
audience through the use of expansive communication strategies.
4. The Assembly recalls its Resolution 2091 (2016) and the 2015-2017
Action Plan on the Fight Against Violent Extremism and Radicalisation
Leading to Terrorism adopted by the Committee of Ministers in May 2015,
and reiterates the need to create positive alternative narratives
to the misuse of religion, aimed at exposing extremist discourse
and dissipating illusions about the real situation in the territories
held by Daesh and the fate of its recruits.
5. Counter-narrative strategies are often criticised as being
too removed from the everyday lives and experiences of those targeted.
The Assembly emphasises the importance of creating effective and
positive alternative narratives, aimed at specific target audiences,
which confront, challenge and contradict the themes intrinsic to
the terrorist narrative through ideology, logic, fact or humour.
Where possible, counter-narrative content should be developed in
co-operation with the members of the target audience.
6. Merely reacting to terrorist narratives is not enough. Counter-narrative
efforts should focus on creating proactive, positive and alternative
narratives, including a positive call for action and a clear articulation
of the “overlapping consensus” and ethical traditions which unite
diverse communities that are committed to the common values of non-violence,
tolerance and democracy.
7. Given that many of the recent terrorist attacks which have
occurred in Council of Europe member States – Belgium, France, Germany,
Spain, Sweden, Turkey and the United Kingdom, but also in other
countries – have been claimed by or may be attributed to Daesh or
its followers, the concept of shared values, namely the shared ethical
traditions common to both the European Convention on Human Rights
(ETS No. 5, “the Convention”) and Islam, should be explored and
actively promoted. The Assembly welcomes, at European Union level,
the creation of a strategic communication task force to work with
European Union delegations in Arab countries, and with the Global
Coalition against Daesh, to identify shared values and plan concrete actions;
and, at the United Nations level, the United Nations Plan of Action
to Prevent Violent Extremism, which highlights the importance of
fostering a global dialogue to unite countries, people and communities
on the basis of universally shared values and principles.
8. The Assembly recognises that it is not possible to develop
a single, overarching counter-narrative. A complex construction
of a multitude of different types of messaging and media, articulated
around local issues and narratives is required in the creation of
effective counter-narratives.
9. The Assembly reiterates that all measures taken to combat
terrorism must comply with States’ obligations under national and
international law and the fundamental principles of democracy, respect
for human rights and the rule of law, and that it is important to
avoid both undermining the values and standards of democracy which
terrorists seek to destroy and creating disproportionate restrictions
to fundamental freedoms. The Assembly strongly condemns all incidents
of hate speech by any State or government official or political
figure that may lead to further radicalisation and propagate hate
and violence.
10. The Assembly therefore calls on the Council of Europe member
and observer States and the States whose parliaments enjoy observer
or partner for democracy status with the Parliamentary Assembly
to:
10.1. where they do not already
exist, draw up national strategies for the prevention of radicalisation;
10.2. prioritise the creation of tailored, flexible positive
alternative narratives to terrorist propaganda and violent extremism,
to undermine and detract from the authority of terrorist leadership
and expose the hypocrisy of the violent extremist narrative and
the reality of life as a terrorist;
10.3. work in collaboration with communities and members of
priority audiences, as well as civil society, religious leaders
and community leaders, using credible messengers, including women,
victims of terrorism, repentant former terrorists and ex-prisoners,
and a variety of media (including electronic messages, television,
radio, print media and the internet) to dispel the terrorist narrative;
10.4. challenge all incidents of hate speech and strongly condemn
all those who preach or propagate hate and violence;
10.5. take measures, including legislative measures, to counter
violent extremism and hate speech on the internet and in social
media that may lead individuals towards violent radicalisation;
10.6. explore and promote the concept of “shared values”, examining
the ways in which the values that inspire both the Convention and
Islam can create positive alternative narratives emphasising respect
for the universal scope of rights and equality before the law, the
right to life, the right to justice, the right to liberty and security,
and the fundamental freedoms of plural societies, including freedom
of thought, conscience and religion (Article 9), freedom of expression
(Article 10) and freedom of assembly and association (Article 11);
10.7. promote positive alternative narratives with local community
outreach activities, engaging with members of the target audience
face to face;
10.8. establish monitoring and evaluation practices to assess
the impact of counter- and alternative-narrative strategies;
10.9. strengthen international co-operation through the sharing
of best practices and information exchange, evaluating the efforts
of States and better co-ordinating approaches;
10.10. review the situation in education systems, promote inclusive
education and ensure that schools fully play their role in preparing
active citizens with a sense of responsibility and critical thinking
skills, and who are prepared to live in a diverse society and defend
the values of democracy;
10.11. sign and ratify the Council of Europe Convention on the
Prevention of Terrorism (CETS No. 196) and its Additional Protocol
(CETS No. 217), along with other relevant Council of Europe legal instruments,
if they have not already done so.
11. The Assembly deems of the utmost importance the articulation
of the “overlapping consensus” in order to unite diverse communities
on the basis of common values, and is determined to contribute to
it. It therefore asks its relevant committees to make concrete proposals
for action in this direction.