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Resolution 2238 (2018)
Radicalisation of migrants and diaspora communities in Europe
1. The Parliamentary Assembly strongly
condemns the recent terrorist attacks in Europe which have provoked
intense debate on the infiltration of terrorists among refugees
and migrants. While it is evident that the overwhelming majority
of refugees arriving in Europe are fleeing violence and extremism
in their countries of origin and are hoping for a peaceful and secure
life, there is a real danger of radicalisation on the way, including
in refugee camps and detention centres. Other migrants may be victims
of radicalisation when they are marginalised or fail to integrate
into their new society and environment, or when they suffer different
forms of discrimination and violence on arrival.
2. The Assembly recalls its resolutions calling for action against
radicalisation and violent extremism in Europe, including Resolution 2103 (2016) on
preventing the radicalisation of children and young people by fighting
the root causes and Resolution
2221 (2018) on counter-narratives to terrorism. It stresses
that the absence of comprehensive migration policies significantly
increases the likelihood of the spreading of violent extremism and
radicalisation among migrants. However, it is convinced that migrants
should not be perceived as increasing the risk of terrorism, as
has been asserted by media and politicians in many countries.
3. The Assembly underlines that preventing and combating radicalisation
requires close and co-ordinated collaboration between all relevant
stakeholders at all levels of governance (local, regional and national), including
with civil society.
4. The Assembly encourages member States to promote policies
which underline the benefits of diversity and develop, among young
people, a positive self-perception of individual identity free of
any inferiority complexes so as to prevent alienation, the lack
of a sense of belonging, marginalisation and isolation of communities
from prevailing, and providing a fertile breeding ground for radicalisation.
5. The Assembly is concerned about the recent, rapidly spreading
phenomenon of radicalisation via the internet and social networks.
It believes that a comprehensive approach reaching all users of
the internet should be developed, involving all stakeholders, including
the internet industry and service providers, State authorities and
civil society.
6. The Assembly is convinced that the media have an important
role to play in preventing radicalisation. Regrettably, certain
media inspired by populist politicians reinforce the association
of Islam with terrorism. Such negative narratives must be avoided
and strongly condemned, and the media must report credibly on the consequences
of radicalisation, raising awareness of the causes of violent radicalisation,
as well as ways to prevent it. The media must also give visibility
to the positive aspects and benefits of diversity, not only to possible
threats.
7. The Assembly stresses the vital role women and women’s organisations
play in preventing radicalisation in families, but also in communities.
They should be encouraged to be more involved in policy making, educational
activities and preventive community work.
8. Diaspora communities are essential for efficient counter-terrorism
action, as they are best placed to identify young people at risk
of joining extremist organisations and to prevent them from doing
so, while avoiding incomprehension and mistrust at the local level.
They have a unique potential for promoting personal relationships
and non-contentious dialogue between people of different origins.
9. The Assembly welcomes the implementation of the Council of
Europe Action Plan on the Fight against Violent Extremism and Radicalisation
Leading to Terrorism (2015-2017) and the adoption of a new Counter-Terrorism
Strategy 2018-2022, which includes activities on fighting violent
extremism and radicalisation. It encourages member States to support
its implementation.
10. The Parliamentary Assembly therefore calls on Council of Europe
member and observer States and States whose parliaments enjoy observer
or partner for democracy status with the Parliamentary Assembly
to:
10.1. as regards policy planning:
10.1.1. promote legislative measures aimed at the prevention of
radicalisation and violent extremism;
10.1.2. co-ordinate preventive strategies and promote the exchange
of information on good practices and experience in combating radicalisation;
10.1.3. instruct the relevant authorities to compile data and
research the mechanisms leading to radicalisation;
10.1.4. develop medium- and long-term public policies to prevent
radicalisation, in close co-operation with governments, municipalities,
police and civil society, including through the participation of
young people;
10.1.5. ensure that social and ethnic mixing is pursued in urban
planning policies, as well as in social housing and access to education;
10.2. as regards preventive strategies:
10.2.1. support
local authorities and municipalities in their crucial role in the
prevention of radicalisation and violent extremism and encourage
the recruitment and involvement of municipal employees and teachers
with a migrant background;
10.2.2. promote co-operation between local police and all faith
communities to build trust and co-operation in preventing radicalisation
and violent extremism;
10.2.3. encourage partnerships between law-enforcement authorities
and migrant communities in order to prevent persons at risk of joining
extremist organisations from doing so;
10.2.4. promote counter-narratives to radicalisation devised by
the leaders of religious communities, scientists and the media,
addressing religious understanding and providing accurate information
on Islam;
10.2.5. promote interfaith dialogue as a tool to combat radicalisation
and violent extremism;
10.2.6. promote inclusive, comprehensive, context-specific and
demand-oriented education and training programmes as efficient tools
to prevent violent extremism;
10.3. as regards prevention of radicalisation in prisons:
10.3.1. ensure that prison staff receive special training on recognising
early signs of radicalisation among prisoners and its prevention;
10.3.2. promote and make use of the Council of Europe Guidelines
and Handbook for prison and probation services regarding radicalisation
and violent extremism;
10.3.3. provide better access to prisons for approved religious
representatives, so that prisoners may practise their religion on
a regular basis without being forced to seek alternatives, which
can lead to radicalisation;
10.3.4. promote a mentoring system in prisons for prisoners who
may have adopted violent extremist views and who express the wish
to “deradicalise”;
10.3.5. encourage the introduction in prisons of specific gender-sensitive
rehabilitation and reintegration programmes;
10.4. as regards the prevention of radicalisation through education
and social inclusion policies:
10.4.1. promote social inclusion
programmes enabling migrants to preserve their multiple cultural
identities and reduce their vulnerability to radicalisation;
10.4.2. develop comprehensive guidance for educators on the prevention
of radicalisation of young people and encourage their disengagement;
10.4.3. promote teacher training on dealing with issues of radicalisation,
hate speech and signs of violent extremism;
10.4.4. provide educational programmes promoting tolerance and
understanding of different religions, philosophies of life, cultures
and traditions;
10.4.5. create well-developed youth programmes, which are essential
in preventing involvement in the radicalisation process at an early
stage;
10.4.6. create a European mechanism for fostering the social protection
of working migrants and their families;
10.4.7. encourage the involvement of migrants and diasporas in
social and sport activities as an alternative to involvement in
extremist organisations and give visibility to and involve sport
role models with a migrant background;
10.5. as regards the prevention of online radicalisation:
10.5.1. ensure co-operation between the internet industry and
service providers, State authorities and civil society in order
to promote powerful and attractive narratives to counter hate speech
and radicalisation online;
10.5.2. create special communication police units tasked with
the detection and removal of illegal web content promoting radicalism
and terrorism on the internet;
10.5.3. promote the introduction of measures enabling all internet
users to block illegal online content and report it to the competent
authorities;
10.5.4. develop youth awareness programmes on online hate speech
and the risk of manipulation by radical organisations;
10.5.5. develop digital teaching and learning resources to prevent
radicalisation and violent extremism, racism, hate speech and anti-Semitism,
for use in lower- and upper-secondary education and teacher training;
10.5.6. encourage and support grassroots initiatives to promote
self-regulation of the internet and combat online radicalisation;
10.5.7. organise training for religious representatives on the
use of media to provide alternative narratives to hate speech and
incitement to violence.
11. The Parliamentary Assembly invites the member States to sign
and ratify, if they have not already done so, the Council of Europe
Convention on the Prevention of Terrorism (CETS No. 196) and its
additional protocol (CETS No. 217), as well as other relevant Council
of Europe legal instruments.