Pursue Prevent Protect Prepare

Pursue Prevent Protect Prepare
The United Kingdom’s Strategy

for Countering International
Terrorism
March 2009
The United Kingdom’s Strategy for
Countering International Terrorism
March 2009
Presented to Parliament
by the Prime Minister and the Secretary of State
for the Home Department
by Command of Her Majesty
This is a corrective reprint incorporating the changes

of the correction slip provided on 8 May 2009
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ISBN: 9780101754729
The United Kingdom’s Strategy for Countering International Terrorism Page 4

Contents
The United Kingdom’s Strategy for

Countering International Terrorism
Foreword: Prime Minister

Foreword: Home Secretary
Introduction
Executive summary
Part 1 Strategic context

1 International terrorism and the UK: background
2 The impact on the uk
3 The current threat to the uk
4 How the terrorist threat has changed
5 Strategic factors
6 The future
Part 2 The contest Strategy

7 The uk strategy for countering international terrorism
8 Pursue: stopping terrorist attacks
9 Prevent: stopping people becoming terrorists or supporting violent extremism
10 Protect: strengthening our protection against attack
11 Prepare: mitigating the impact of attacks
12 Chemical, biological, radiological and nuclear weapons and explosives
Part 3 Delivering contest

13 Managing delivery
14 Delivery partnerships
Part 4 Communications
15 Counter-terrorism communications
Conclusion
Annex A: PSA outcomes

Annex B: Departmental roles and responsibilities
Annex C: Acronyms and abbreviations
End notes
Contents Page 5
Foreword
The Rt Hon Gordon Brown MP Prime Minister
The first priority of any Government is to ensure the security

and safety of the nation and all members of the public.
While recent events have shown, tragically, that the threat

of terrorism in Northern Ireland is still with us, the most
significant security threat to the people of the United
Kingdom today comes from international terrorism.
This new form of terrorism is different in scale and nature from the terrorist threats
we have had to deal with in recent decades. It is intent on inflicting mass casualties
without warning, motivated by a violent extremist ideology, and exploits modern travel
and communications to spread through a loose and dangerous global network.
This is the threat on which this updated strategy, CONTEST, is focused. In the six
years since we first developed CONTEST, the many thousands of hard working men
and women in the police, the intelligence and security agencies, our armed forces, the
emergency services, local authorities, businesses, community groups and others have
achieved a great deal in their work to counter this ongoing threat. I pay tribute to them.
But the threat remains, and is always evolving. We can never afford to assume that the
established way of doing things is enough. We are continuing to increase investment to
ensure the police, agencies and others are fully prepared, and we will make whatever
changes are necessary to protect our security – as well as ensuring we have learned the
lessons of recent experience to make sure we have the strongest possible response.
I believe that if people are better informed about the threat they will be more vigilant
but also more assured, and I am therefore pleased that this published strategy gives
a more detailed and wide-ranging account of our response than ever before.
It sets out our comprehensive approach for tackling international terrorism – from
the international, through the national, to the local. It outlines how we are tackling
the immediate threat through the relentless pursuit of terrorists and the disruption of
terrorist plots; how we are building up our defences against attacks and our resilience
to deal with them; and how we are addressing the longer term causes – particularly
by understanding what leads people to become radicalised, so we can stop them
becoming terrorists or supporting terrorism or violent extremism in the first place.
I believe this updated strategy leaves us better prepared to meet the terrorist threat,
and to achieve our objective of ensuring that the people of the United Kingdom can
go about their normal lives in confidence and free from fear.
Gordon Brown MP

Foreword
The Rt Hon Jacqui Smith MP Home Secretary
I am very pleased to publish this new version of the

UK’s strategy for tackling international terrorism, known
as CONTEST.
One of the primary duties of Government is to keep our

citizens safe and secure, and to protect the freedoms we
all enjoy. Tackling the threat we face from international
terrorism remains an important challenge.
This strategy aims to reduce the risk to the United Kingdom and our interests
overseas, so that people can go about their lives freely and with confidence.
We have had considerable success in countering the terrorist threat since CONTEST
was first adopted six years ago, including disrupting a number of planned terrorist
operations against the UK and bringing those responsible to justice.
But the threat is always changing. New groups emerge and terrorists continue
to develop new methods and make use of new technologies. Learning from our
experience over the past few years, we have updated all aspects of our strategy
to take account of this changing threat.
Working across government departments, CONTEST is one of the most comprehensive

and wide-ranging approaches to tackling terrorism anywhere in the world. We set out
here for the first time a detailed account of the history of the threat, how in recent
years a new form of international terrorism has emerged, and the impact this has had
on the UK. We also describe the strategic factors that sustain terrorism, the principles
that underlie our response to the threat, our key achievements to date, and the
challenges that we will face in the future.
In publishing this strategy, our aim is to provide the people of the UK and our partners
overseas with as full and as open an account as possible of why and how we are
tackling this threat. And in setting out clearly the steps we are taking to protect the
public and to prevent the rise of violent extremism, I pay tribute to the dedication of
the thousands of people – police and intelligence officers, the emergency services,
local authorities, businesses, and voluntary and community groups – who are working
together to make Britain safe.
Jacqui Smith MP
Foreword Page 7
Introduction
Since 2003, we have had a comprehensive strategy in place

to counter the threat to this country and to our interests
overseas from international terrorism. The strategy is known
as CONTEST.
The aim of the strategy is ‘to reduce the risk to the UK and
its interests overseas from international terrorism, so that
people can go about their lives freely and with confidence’.
We believe that to date the strategy has achieved its

intended aim.
We have now revised this strategy to take account of the

evolution of the threat and of our understanding of the factors
which are driving it. The strategy also reflects the lessons we
have learned since 2003 and the increasing resources we
have made available for counter-terrorism. These revisions
will help us ensure that the strategy meets its aim in future.
This is the first time we have published this strategy in such

detail: we want to be as open as possible in describing
the threat we face and the responses that we believe are
appropriate to address it. In a few areas only, we have had
to withhold information either for legal or security reasons.
The document begins with an executive summary which is

intended to highlight the main themes in the entire document.
The first part of the document then sets out how the terrorist
threat to the UK has evolved, the present threat, the factors
which are shaping it and our assumptions about how it may
develop in future.

The second part sets out the principles which will govern the
strategy. They include our commitment to human rights and
the rule of law. They make clear that we need to address
the causes as well as the symptoms of terrorism. And they
emphasise that partnerships in this country and overseas
are vital to our success. Government cannot deliver CONTEST
on its own.
This part of the document also describes the four main

workstreams of the strategy – known as Pursue, Prevent,
Protect and Prepare – in each case explaining their purpose,
our key achievements to date, what we intend to do next,
and the challenges we face. We have also described our
current activities in Afghanistan and Pakistan; and we
have summarised action we are taking to address the risk
of a terrorist attack which makes use of non-conventional
weapons.
The third part of the document outlines who will deliver the
strategy and how we will measure its impact. For security
reasons we have not been able to publish the ‘delivery
plans’ which describe in much more detail how we will
deliver CONTEST.
The document concludes with a section explaining the

importance of communications as a part of our counter-
terrorism strategy.
In March 2007 the Prime Minister made the Home Secretary

accountable for coordinating CONTEST and established the
Office for Security and Counter-Terrorism (OSCT) in the Home
Office to provide the Home Secretary with support. OSCT
has led the work to update this strategy with significant
contributions from the many Departments and agencies
that are responsible for its delivery.
Introduction Page 9
Executive summary
Introduction 0.4 A new form of terrorism emerged

overseas in the late seventies and early
0.1 This document sets out the United eighties, initially with little connection
Kingdom’s strategy for countering the to the UK, when terrorist organisations
threat from international terrorism, in Egypt tried to overthrow the Egyptian
known as CONTEST. It aims to: Government and establish what they
regarded as a genuine Islamic state.
• set the context with a brief history
These militant groups had an explicitly
of the changing threat to the United
religious agenda and claimed to justify
Kingdom (UK) and to UK interests
violence on religious grounds.
overseas from international terrorism
• explain the kind of threat the UK now 0.5 Following the invasion of Afghanistan
faces and how terrorism has changed by the Soviet Army in 1979, groups of
in the UK and overseas in the past this kind from Egypt and elsewhere in
15 years the Arab world travelled to Afghanistan
to fight against the Soviet army. The
• identify the factors that have created
1987 intifadah reflected the growing
and are creating this threat
influence of militant religious groups in
• set out what the Government has done the Occupied Territories.
about the threat to date, and
0.6 After the withdrawal of Soviet forces
• explain what actions will be taken
from Afghanistan in 1989, groups and
to address the threat in future and
individuals who had fought there returned
in particular in the next three years,
to their home countries or other areas
and the challenges we will face.
of conflict. They caused further unrest
in Egypt and also played an important
Part One: Strategic context
part in the Algerian civil war. From the
early nineties, groups with links to Egypt
International terrorism
and Algeria began to conduct terrorist
0.2 The terrorist threat to the UK is operations in third countries, including
not new. In the post-war period terrorist the United States (US) and France.
organisations, with a wide range of
motivations, have repeatedly attacked 0.7 The organisation now known as
UK interests; and between 1969 and Al Qa‘ida formed in Afghanistan in the
1998 over 3,500 people died in the UK late 1980s. It developed the thinking of
itself as a result of Irish-related terrorism. earlier Egyptian militant terrorist groups
and from 1996 onwards called for attacks
0.3 The international terrorist threat not only on some Islamic states, but also
to the UK and UK interests overseas on the US and its allies, including the UK,
is more recent. In the seventies, most and specifically on civilians. Subsequent
attacks were conducted by militant Al Qa‘ida attacks culminated in the tragic
Palestinian groups. Some attacks, events of 11 September 2001. Military
notably against Pan Am 103, were action in Afghanistan by an international
state sponsored. coalition then led to the fall of the Taliban
in late 2001, which deprived Al Qa‘ida
of its training facilities and significantly
reduced its operational capability.

The impact on the UK contains programmes relevant for tackling
terrorist threats from any quarter.
0.8 By the early nineties some
propagandists for Egyptian and other
How the terrorist threat has changed
violent extremist organisations had
settled in London. Some British 0.12 The current international terrorist
extremist organisations began to support threat is quite different from the
participation by people in this country terrorist threats we faced in the past.
in terrorism overseas. Al Qa‘ida recruited Contemporary terrorist groups claim a
people from the UK and established a religious justification for their actions and
network here. By late 2000, the UK had have a wide-ranging religious and political
itself become a target: the police and agenda; they are no longer concerned
Security Service disrupted an attempt with a single issue. Many seek mass
to conduct an attack in Birmingham city civilian casualties and are prepared to
centre (well before the attacks in the use unconventional techniques (including
US on 11 September 2001, the chemical or radiological weapons); they
subsequent conflict in Afghanistan, conduct attacks without warning; they
and the 2003 Iraq war). actively seek to recruit new members in
the UK and elsewhere around the world.
0.9 Since 2001 the police and
Security Service have disrupted over Strategic factors
a dozen attempted terrorist plots in
0.13 While particular events or individuals
the UK. On 7 July 2005 four British
are often credited with a major role in the
terrorists attacked the London transport
emergence of contemporary international
system, murdering 52 people and injuring
terrorist networks, we believe it is more
hundreds more. A second planned attack
useful in developing our strategy to focus
two weeks later was unsuccessful. Those
on the effect and impact of four deeper
involved in these operations and many
and longer-term strategic factors:
of the others were working with Al Qa‘ida.
• Unresolved regional disputes and
The current threat to the UK conflicts (particularly Palestine,
Afghanistan, Bosnia, Chechnya,
0.10 The threat to the UK (and to many
Lebanon, Kashmir, and Iraq) and
other countries) now comes primarily from
state fragility and failure.
four sources: the Al Qa‘ida leadership
and their immediate associates, located • The violent extremist ideology
mainly on the Pakistan/Afghanistan associated with Al Qa‘ida, which regards
border; terrorist groups affiliated to most Governments in Muslim countries
Al Qa‘ida in North Africa, the Arabian as ‘un-Islamic’ or apostate; claims that
Peninsula, Iraq, and Yemen; ‘self-starting’ these governments are sustained by
networks, or even lone individuals, western states who are engaged in a
motivated by an ideology similar to that global attack on Islam; and considers
of Al Qa‘ida, but with no connection to violent action to be a religious duty
that organisation; and terrorist groups incumbent upon all Muslims.
that follow a broadly similar ideology
• Modern technologies, which facilitate
as Al Qa‘ida but which have their own
terrorist propaganda, communications
identity and regional agenda. All these
and terrorist operations.
groups respond to local challenges and
grievances. But Al Qa‘ida has sought • Radicalisation – the process by
to bring them together into a single which people come to support violent
global movement. extremism and, in some cases, join
terrorist groups. Radicalisation has
0.11 In recent years, and we anticipate a range of causes (including
for some years to come, the major perceptions of our foreign policy),
terrorist threat to the UK will come from varying from one country and one
these four sources and this strategy is organisation to another.
structured accordingly. But our strategy
Executive summary Page 11

The future • Under international pressure the
Al Qa‘ida organisation is likely to
0.14 Some of the factors that currently
fragment and may not survive in its
sustain international terrorism are likely
current form. Networks and groups
to persist:
associated with Al Qa‘ida will have
• Many of the conflicts and disputes more autonomy. They will continue to
exploited by contemporary terrorist operate in fragile and failing states.
organisations show no signs of
• Terrorist organisations will have
early resolution.
access to new technology and may
• Failing states (or areas with failing become capable of conducting more
governance) are likely to remain a lethal operations.
factor for the foreseeable future.
• The ideology associated with Al Qa‘ida
• Evolving technology will continue to will outlive changes to its structure.
enable terrorism and in some ways
• The extent to which the international
make it easier.
community can reach out to those
• Some people in the Islamic world who are vulnerable to radicalisation
are likely to continue to support the will significantly determine the shape
political agenda associated with and extent of the future threat.
Al Qa‘ida – although fewer will support
• As the structure of Al Qa‘ida changes,
Al Qa‘ida’s operational activities.
the terrorist threat in and to the UK
may diversify towards smaller ‘self-
0.15 Other trends are likely to constrain
starting’ organisations. Continued law
the ability of terrorist organisations
enforcement, security and intelligence
to threaten the UK and its interests
work will be needed to contain the
overseas:
threat we face.
• They will continue to lose their more
• But the ideology which sustains
experienced members (including
terrorism will be subject to greater
the leadership of Al Qa‘ida) to
challenge in and by communities in
multinational law enforcement,
this country, notably but not only by
intelligence, and military operations.
British Muslims, making it harder
• They are vulnerable to any reform and for terrorists to operate here and
regeneration of failing states, which to recruit people to their cause.
may deprive them of the bases on
which they depend. Part Two: The CONTEST Strategy
• They are short of money and funding.
Aim
• Their ideology – based upon a
0.17 The aim of CONTEST is to reduce
selective interpretation of Islam,
the risk to the United Kingdom and its
contemporary politics and history –
interests overseas from international
is rejected by many Muslims across
terrorism, so that people can go about
the Islamic world and by the vast
their lives freely and with confidence.
majority of Muslims in the UK.
CONTEST is one part of the first UK
• They have failed. Al Qa‘ida and their National Security Strategy, published
affiliates have not succeeded in in 2008.
creating mass movements to overthrow
some governments and change the Principles
policies of others. Their indiscriminate
0.18 CONTEST is based on principles
killing of Muslims has eroded their
that reflect our core values, the lessons
support and their credibility.
we and others have drawn from
experiences of terrorism to date, and the
0.16 Against this background our
broader security principles set out in the
planning assumptions set out the likely
National Security Strategy.
direction of the terrorist threat over the
next three years. We assess that:

• We will continue to regard the workstreams. They include the Chemical,
protection of human rights as central Biological, Radiological, Nuclear and
to our counter-terrorism work in this Explosive (CBRNE) threat.
country and overseas.
0.21 CONTEST is intended to be a
• Our response to terrorism will be
comprehensive strategy: Work on Pursue
based upon the rule of law.
and Prevent reduces the threat from
• We will always aim to prosecute terrorism; work on Protect and Prepare
those responsible for terrorist attacks reduces the UK’s vulnerability to attack.
in this country.
0.22 CONTEST coordinates closely with
• Our strategy will tackle the causes as
our counter-insurgency work overseas,
well as symptoms of terrorism.
notably in Iraq and Afghanistan, the
• Reducing support for terrorism and purpose of which is to stop movements
preventing people becoming terrorists which aim to overthrow recognised
are vital: without popular support governments by armed conflict and
terrorism is unsustainable. subversion. The UK’s counter-insurgency
work in support of the Governments in
• Our strategy must be responsive to the
Iraq and Afghanistan has been led by
threat which can be created by rapidly
the Foreign and Commonwealth Office
evolving technology.
(FCO) and the Ministry of Defence (MOD)
• We recognise that partnerships in this with our Armed Forces playing the major
country and overseas are essential operational role. Like our counter-terrorism
to our success and that these work, counter-insurgency makes a vital
partnerships depend on openness contribution to our national security.
and trust.
Pursue – stopping terrorist attacks
• The threat we face crosses our
borders and is international in scope. 0.23 The most immediate priority for the
We will depend upon our allies as they Government is to stop terrorist attacks.
will depend on us.
0.24 Terrorists operate in secret.
Strategic framework Intelligence is vital to detect and disrupt
their activities. In the past five years there
0.19 As in 2006, when details of the
has been a rapid and significant increase
strategy were last published, delivery
in intelligence resources at home and
of the strategy is organised around
overseas, for the agencies and the police.
four workstreams:
These resources have been organised
• Pursue: to stop terrorist attacks into new structures which ensure
unprecedented interagency collaboration,
• Prevent: to stop people becoming
recognised internationally as a model
terrorists or supporting violent
for successful joint working.
extremism
• Protect: to strengthen our protection 0.25 In accordance with the principles
against terrorist attack set out above, the Government has
introduced new legislation to respond to
• Prepare: where an attack cannot
the evolving terrorist threat. New offences
be stopped, to mitigate its impact
relate to the preparation of terrorist acts,
receiving training for terrorist purposes,
Each workstream has objectives which
attending a place used for terrorist
reflect the assumptions we have made
training and encouraging terrorism or
about the future threat and the principles
disseminating terrorist publications.
to which we will hold. For each objective we
have a series of supporting programmes.
0.26 It is not always possible to
prosecute people who intelligence
0.20 The strategy now places increased
indicates are engaged in terrorist-related
emphasis on a number of issues
activity: for this reason the Government
which are common to all of the main

has developed a range of alternative 0.31 On a number of key issues the
non-prosecution actions to protect the position of the Government will remain
public. They include control orders (which uncompromising: the Government
impose restrictions on the movements and opposes the use of torture in all its
contacts of an individual who has been forms; and the Government has always
engaged in terrorist-related activity); the and will continue to condemn the practice
exclusion of foreign nationals from entering of ‘extraordinary rendition’. UK agencies
the UK; revocation of citizenship; and and police have not and will never engage
deportation. These powers directly affect in these practices.
only a very small number of individuals.
Prevent – stopping people becoming
0.27 Powers are also available to terrorists or supporting violent
proscribe groups involved in terrorism. extremism
0.32 To reduce the risk from terrorism –
0.28 Recognising our dependence
our aim – we need not only to stop attacks
on international partners, many less
but also to stop people becoming
experienced than we are in counter-
terrorism work, the Government has
extremism. The Government introduced
provided significant assistance and
its revised Prevent strategy in October
capability building to over 20 countries
2007. The strategy is based on a
in a range of counter-terrorism skills and
better understanding of the causes of
techniques. This includes advice on legal
radicalisation (the process by which
structures and human rights training.
people become terrorists or lend support
to violent extremism), to each of which it
0.29 In the next three years we have the
aims to provide a coherent response.
following Pursue objectives:
• Increase detection and investigation 0.33 In the next three years this
capability and capacity. workstream has five main objectives:
• Increase the effectiveness of our • To challenge the ideology behind
prosecution process, from evidential violent extremism and support
collection to post-prison supervision. mainstream voices.
• Develop more effective non- • Disrupt those who promote violent
prosecution actions. extremism and support the places
where they operate.
• Improve our capability to disrupt
terrorist activities overseas. • Support individuals who are vulnerable
to recruitment, or have already been
• Strengthen the coherence between
recruited by violent extremists;
our counter-terrorism work and the
UK’s counter-insurgency and capacity • Increase the resilience of communities
building work in Afghanistan, Pakistan, to violent extremism.
and elsewhere.
• To address the grievances which
• Improve coordination and partnership ideologues are exploiting.
between Pursue stakeholders.
0.34 The two supporting objectives
0.30 The protection of human rights is are to: develop supporting intelligence,
a key principle underpinning our counter- analysis, and information; and to improve
terrorism work at home and overseas. our strategic communications.
A challenge facing any government is to
balance measures intended to protect 0.35 The Government has allocated new
security and the right to life, with the funding to a wide range of agencies and
impact on other rights which we cherish. Departments to develop programmes
The Government has sought to find that under these objectives. The cost of the
balance at all times. key deliverables in 2008/09 alone is over
£140 million. These programmes include:

• The Preventing Violent Extremism which fall short of supporting violence
programme: a community-led and are within the law, but which reject
approach to tackling violent and undermine our shared values and
extremism led by the Department for jeopardise community cohesion. Some
Communities and Local Government of these views can create a climate in
(CLG) in partnership with local which people may be drawn into violent
authorities and a range of statutory activity. We have no intention of outlawing
and voluntary organisations. these views or criminalising those who
hold them.
• The police Prevent Strategy and
Delivery Plan with 300 new ring-
0.39 The internet presents significant
fenced staff being recruited in 24
challenges for CONTEST in general and
forces to work alongside the national
Prevent in particular. The Government
and regional counter-terrorism policing
has taken action here to explore ways of
structure and with neighbourhood
addressing the widespread dissemination
policing teams.
of terrorist related material. This
• The Channel programme: a material is usually hosted outside this
community-based initiative which uses country. Further action is being taken
existing partnerships between the with counterparts overseas and with
police, local authority and the local multilateral organisations, including the
community to identify those at risk European Union and the United Nations.
from violent extremism and to support
them, primarily through community- Protect – strengthening our protection
based interventions. There are against terrorist attack
currently 11 Channel sites; another
0.40 To achieve the aim of our strategy
15 are planned.
we also need to reduce the vulnerability
of this country and its interests overseas
0.36 The Prevent strategy depends upon
to terrorist attack. This is the purpose
a unique and ground-breaking range of
of Protect. A considerable amount
local, national and international partners.
of progress has been made on this
lt needs the support of communities
workstream over the past five years.
and community organisations in this
It covers protection of critical national
country to protect vulnerable people
infrastructure (CNI), crowded places,
from radicalisation, and recruitment to
the transport system, our borders, and
terrorism. Because the greatest threat
our interests overseas; and protection
at present is from terrorists who claim to
against threats from insiders and from
act in the name of Islam, much Prevent
the misuse of hazardous substances.
activity takes place in and with Muslim
communities. But the principles of our
0.41 The CNI delivers essential
Prevent work apply equally to other
services to the public. Damage to that
communities who may be the focus of
infrastructure can have severe economic
attention from violent extremist groups.
impact or cause large scale loss of
life. Intelligence shows that terrorists
0.37 The role of law enforcement
are interested in attacking national
agencies is as important in Prevent as
infrastructure targets and recognise the
it is in Pursue. Local government and
potential impact those attacks can have.
central Departments have a vital role to
play. And international partnerships are
0.42 The Government has put in place a
essential: people in this country can be
comprehensive programme to protect the
radicalised as well as trained overseas
national infrastructure from terrorism. The
and messages from other countries can
programme is supported by the Centre for
significantly impact on opinions here.
the Protection of National Infrastructure
(CPNI), established in 2007.
0.38 As part of this strategy we will
take action against those who defend
terrorism and violent extremism. We
will also continue to challenge views

0.43 Crowded places are also a ‘lock’ a person’s biographic information
preferred terrorist target. Through the to their unique facial and fingerprint
National Counter Terrorism Security Office biometrics on a National Identity Register
(NaCTSO) the Government has provided (NIR). This biographic and biometric
security advice to crowded places information will be stored in a chip on
(including sporting venues and shopping an identity card. Identity cards do not
centres). Specialist programmes have provide a single solution to terrorism and
been developed for the transport the Government is not proposing their
network – air, sea, and rail (including introduction only for counter-terrorism
underground systems). related reasons, but they do provide a
valuable tool for authenticating identity
0.44 Protecting our borders has been a and for that reason support counter-
key part of this workstream. The new UK terrorist investigations.
Border Agency (UKBA) integrates three
previous organisations into an agency of Prepare – mitigating the impact
more than 25,000 staff, with a presence of attacks
in 135 countries. New biometric visa
0.49 The Prepare workstream aims to
and travel tracking programmes have
mitigate the impact of a terrorist attack
significantly enhanced border security.
where it cannot be stopped. This includes
work to manage an ongoing attack and to
0.45 Action has also been taken to
recover from its aftermath.
minimise and manage the ‘insider threat’:
the risk of staff exploiting legitimate
0.50 Since 2004 the Government
access to an organisation’s assets or
has put in place capabilities to deal
premises for unauthorised, malicious
with a range of emergencies, of which
purposes, ranging from theft to terrorism.
terrorism is one. Organisations have
been established (notably local and
0.46 The Government protects UK
regional resilience networks) and
interests overseas, including British
capabilities improved. This resilience
citizens who travel or live overseas.
work has absorbed important lessons
Programmes provide accurate advice
from the 2005 London bombings. These
to travellers on the threat from terrorism
capabilities reflect the types of terrorism
and ensure the physical protection of
attack we judge to be most likely in this
British diplomatic missions and
country. These are identified in a National
personnel overseas.
Risk Assessment.
0.47 In the next three years our
0.51 Capabilities to respond to a terrorist
objectives for Protect will be to further
attack have been enhanced by the new
reduce the vulnerability of:
Police Counter-Terrorism Network, by joint
• the critical national infrastructure programmes between policing and the
Armed Forces, and by exercises to ensure
• crowded places
all these capabilities are effective.
• the transport system
0.52 Specific and dedicated capabilities
• and our borders.
have been put in place in the emergency
• New programmes will improve the services to manage the terrorist use of
security of hazardous materials which chemical and biological materials.
might now be used in terrorist attacks.
0.53 The objectives of the Prepare
0.48 Some terrorists use false papers workstream will be to ensure:
to travel here and to conceal their real
• capabilities are in place to
identity. Others have created multiple
deal with a range of terrorist incident
identities to avoid detection and hide their
activities. The National Identity Scheme • there is continuity or swift recovery
will provide a secure way to safeguard in our critical national infrastructure
personal identities from misuse, and will following a terrorist incident

• central, regional and local crisis services have a major role to play in
management structures are Pursue aspects of CBRNE work. We
appropriately equipped, competent will need to reflect the CBRNE threat
and trained. in our work under Prevent to challenge
the ideology behind violent extremism
0.54 The Government will also and, specifically, the legitimacy it claims
conduct further planning to manage for mass murder; major Protect-related
the consequences of the UK’s highest programmes include the provision of
impact terrorism threats as set out in the radiological detection systems at ports
National Risk Assessment. These include of entry to the UK, safeguarding CBRNE
the use of unconventional techniques materials and ensuring the security of the
including radiological as well as chemical civil nuclear sector. Preparing for a CBRNE
and biological materials. attack has been a key feature of our
broader preparedness work.
0.55 Many of the capabilities relevant
for Prepare are also available to deal 0.61 These programmes will continue,
with the consequences of other threats informed by a comprehensive classified
and hazards. For example, the local review of cross-Government CBRNE
government resilience network is activity due for completion in early
configured to deal with the consequences 2009 and by an extensive programme
of other local emergencies as well as the of scientific research.
impact of an act of terrorism.
Part Three: Delivering CONTEST
0.56 Departments and agencies are
currently considering the implications 0.62 CONTEST is overseen at Ministerial
of the recent Mumbai attacks for our level by the Cabinet Committee on
Prepare strategy. National Security, International Relations
and Development (NSID), chaired by
Chemical, biological, radiological, the Prime Minister, and by the Home
nuclear and explosive materials Secretary as the lead Minister for counter-
terrorism, and involving the heads of
0.57 Contemporary terrorist
the security and intelligence agencies,
organisations aspire to use chemical,
the police, and Armed Forces. Some
biological, radiological and even nuclear
aspects of CONTEST are also dealt with
weapons. Changing technology and
by subcommittees of NSID. NSID may
the theft and smuggling of chemical,
also receive external advice on counter-
biological, radiological, nuclear and
terrorism, as on other national security
explosive (CBRNE) materials make this
issues, from the National Security Forum,
aspiration more realistic than it may have
an independent body of outside advisors
been in the recent past.
with expertise on many aspects of
national security.
0.58 Terrorists have also developed
new types of explosives and new ways
0.63 Delivery of the CONTEST
of using them. Technology has developed
Strategy requires close cooperation
in conflict areas overseas and is rapidly
between a wide range of organisations
shared by terrorist organisations around
and stakeholders: local authorities,
the world.
Government Departments, Devolved
Administrations, the police, security and
0.59 Within CONTEST a multi-agency
intelligence agencies, emergency services
strategy has been developed to respond
and the Armed Forces and international
to these threats. The UK cooperates
partners and multilateral organisations.
closely in these areas with the US and
CONTEST also depends on the expertise
with other allies.
and knowledge held by communities,
industry and the third sector.
0.60 Our strategy is built around
programmes under each of the four main
CONTEST workstreams. The intelligence

0.64 For the first time, counter-terrorism face, the principles which govern our
work has a Public Service Agreement response, the choices we make and
(PSA) intended to set targets and monitor the successes we achieve.
progress. The aim of this PSA is the
same as CONTEST: to reduce the risk to 0.70 Our communications must also
the UK and its interests overseas from respond to the propaganda directed
international terrorism. The PSA is based against us by terrorist organisations,
around nine intended outcomes across often using new media in a relentless and
the four main CONTEST workstreams. sophisticated way. We need to challenge
the ideology and the outlook of Al Qa‘ida.
0.65 Delivery of CONTEST and the
PSA in particular is overseen by the 0.71 Much of this work falls to
CONTEST Board, chaired by the Director the Research, Information and
General OSCT in his capacity as Communications Unit, a cross-
CONTEST Senior Responsible Owner Departmental team established
(SRO). Representatives from key in June 2007.
Departments and agencies attend
the Board; governance arrangements Conclusion
are maintained by the CONTEST
Portfolio Office. 0.72 Terrorism is a major threat to the
security of the UK and to the ability
0.66 Each workstream of CONTEST of British people to live their daily lives.
has a detailed delivery plan, identifying In recent years a new form of terrorism
responsibility for each programme, has emerged, fundamentally different
projected timescales, benefits and costs. in scale and kind from international
or domestic terrorist threats we
0.67 The 2007 Comprehensive have faced before. CONTEST, the
Spending Review announced increased Government’s response to this threat,
resources for counter-terrorism and is a comprehensive and coordinated
intelligence. Security spending is planned strategy and programme of delivery,
to reach £3.5 billion by 2011. This involving many departments, agencies
includes, among other increases, an and public bodies. The Government’s
additional £240 million in funding for counter-terrorism effort has benefited
counter-terrorist policing and over £100 from sustained increases in funding
million to improve our ability to stop since 2001.
people becoming or supporting terrorists.
0.73 Our response has included
0.68 The 2012 Olympic and Paralympic changes to our laws to reflect the threat
Games will be a celebration of sport we face, but has at all times upheld
and culture for London and the UK. the principles and values of the UK as
The Government is responsible for a liberal democracy. Although there
ensuring that the Games are safe and can be no guarantee of protection
secure against all types of risk including against a successful terrorist attack the
terrorism. Since December 2008, the Government believes that CONTEST is the
Olympic Security Directorate in OSCT most comprehensive and wide-ranging
has been leading work on a multi-agency approach to tackling terrorism developed
security strategy for the 2012 Games. by any major nation. It has achieved its
OSCT reports to the Home Secretary aim – to reduce the risk to the UK and to
and to NSID. its interests overseas from international
terrorism, so that people can go about
Part Four: Communications their lives freely and with confidence.
This revision to CONTEST is intended to
0.69 Communications to the public, ensure that it will continue to do so.
stakeholders and affected communities
are a vital part of our counter-terrorism
work. Good communications enable us
to convey the reality of the threats we

Strategic context Page 21

Part 1 International terrorism and the UK: background
Section 1
Summary
The terrorist threat to the UK is not new. In the

postwar period terrorist organisations, with a wide
range of motivations, have repeatedly attacked
UK interests; and between 1969 and 1998 over
3,500 people died in the UK itself as a result of
Irish-related terrorism.
The international terrorist threat to the UK and UK interests overseas is more recent.
In the seventies, most attacks were conducted by militant Palestinian groups. Some
attacks, notably against Pan Am 103, were state sponsored.
A new form of terrorism emerged overseas in the late seventies and early eighties,
initially with little connection to the UK, when terrorist organisations in Egypt tried to
overthrow the Egyptian Government and establish what they regarded as a genuine
Islamic state. These militant groups had an explicitly religious agenda and justified
terrorism on religious grounds.
Following the invasion of Afghanistan by the Soviet Army in 1979 groups of this kind,
from Egypt and elsewhere in the Arab world, travelled to Afghanistan to fight against
the Soviet army. The 1987 intifadah reflected the growing influence of militant religious
groups in the Occupied Territories.
After the withdrawal of Soviet forces from Afghanistan in 1989 groups and individuals
who had fought there returned to their home countries or other areas of conflict. They
caused further unrest in Egypt and also played an important part in the Algerian civil
war. From the early nineties, groups with links to Egypt and Algeria began to conduct
terrorist operations in third countries, including the US and France.
The organisation now known as Al Qa‘ida formed in Afghanistan in the late 1980s.
It developed the thinking of earlier militant terrorist groups which relied on an explicitly
religious agenda and justified terrorism on religious grounds and from 1996 onwards
called for attacks not only on some Islamic states but also on the USA and its allies,
including the UK, and specifically on civilians.
Subsequent Al Qa‘ida attacks culminated in the events of September 11, 2001.

Military action in Afghanistan by an international coalition then led to the fall of the
Taliban in late 2001, which deprived Al Qa‘ida of its training facilities and significantly
reduced its operational capability.

Part 1 International terrorism and the UK: background
Section 1
1.01 Terrorism is not new. In the International terrorism

immediate post-war period UK citizens
and interests were targeted and attacked 1.04 International terrorism is
by Zionist terrorists in the British Mandate conducted primarily by organisations with
of Palestine and by nationalist terrorists a transnational capability, which aim to
in Cyprus1. Many other countries have conduct attacks in and from a number of
suffered from attacks by domestic countries and, increasingly, claim to have
terrorist organisations; in Europe, the an international cause. The distinction
Red Army Faction in Germany, the Red between international and domestic
Brigades in Italy and November 17 in terrorist organisations is not exact: the
Greece caused many civilian casualties. terrorist threat we face now comes from
The Basque terrorist organisation, an international movement which makes
Euskadi Ta Askatasuna (ETA) continues use of and is affiliated to some domestic
to operate in Spain and the Kongra groups around the world.
Gel (formerly known as the PKK) is still
conducting terrorist attacks in Turkey2. 1.05 The first part of this paper looks
Countries in every other continent have at the development of the international
also been affected. terrorist threat to the UK, the current
threat, the factors that drive terrorism,
Irish-related terrorism and how the threat may change in future.
1.02 Between 1969 and the signing 1.06 The first modern international
of the Belfast Agreement in April 1998, terrorist incident has been dated back
over 3,500 people died in the UK as a to 1968, when a faction of the Palestine
result of Irish-related terrorism3. Since Liberation Organisation (PLO) hijacked
then there have been attacks by dissident an Israeli commercial flight from Rome4.
republican terrorist groups, including Two years later the same organisation
the Omagh bombing of August 1998, took over a British commercial aircraft
and most recently the murder of two as part of a multiple hijacking and later
Army personnel and a Police Service destroyed it on the tarmac at an airfield
of Northern Ireland officer in separate in Jordan5. Further incidents rapidly
incidents in March 2009. followed, including the murder of Israeli
athletes at the Munich Olympic Games
1.03 These recent attacks show the in 1972. Over the next 20 years other
continued intent of dissident republicans groups motivated by Palestinian issues
in the face of the political progress that and principally comprising Palestinians,
has been made in recent years and conducted a range of attacks in the UK
which is supported by the overwhelming and against UK interests as part of a
majority of the people of Northern Ireland. wider pattern of operational activity6.
The additional investment, increased Among the most lethal was the Abu Nidal
capabilities, and improved structures we Organisation (ANO), led by Sabri al Banna,
have put in place since 2001 to counter which began operations in 19737 and
terrorism are available to respond to during the 1980s attacked Israeli and
threats as they arise. However, this Jewish targets in London and Europe,
counter-terrorism strategy is specifically as well as airports at Rome and Vienna.
addressed at the recent resurgence in In 1986, ANO took and killed three
international terrorism, which remains hostages (two British and one American)
the greatest current threat both in this in Lebanon and hijacked and destroyed
country and to our overseas interests. a US airliner8.

Part 1 1.07 Some international terrorist groups
and specific terrorist attacks during this
and began to work alongside another
small group of Arabs, including Usama
Section 1 period were state sponsored. ANO itself bin Laden, who were also intent on driving
was at various times supported by the the Soviet army out of Afghanistan and
Iraqi, Syrian and Libyan Governments. re-establishing an Islamic government.
In April 1986, a Jordanian national Some of these organisations and others
attempted to use an unwitting associate in the wider Afghan and Pakistani
to blow up an El Al aircraft departing from mujahideen movement received
London. The UK subsequently broke off funding and support from western and
diplomatic relations with Syria which had Islamic states. The growing influence of
organised the operation9. In December radical and militant Islamism was seen
1988 another commercial passenger elsewhere, notably in the first intifadah
aircraft, Pan Am 103, was destroyed by in the Occupied Territories from
an explosive device over Scotland killing 1987 onwards.
259 people on board and 11 in the town
of Lockerbie where it crashed10. This 1.10 After the withdrawal of Soviet forces
operation, which caused greater loss in 1989 and the fall of the Soviet-backed
of life than any other terrorist incident in regime in 1992, many of the groups and
the UK, before or since, was sponsored individuals who had fought in Afghanistan
and conducted by the Libyan authorities; returned to their countries of origin or
in 2001 a Libyan national was convicted moved to other areas of conflict17. They
and sentenced for his role in the incident11. played a significant part in further terrorist
attacks in Egypt culminating in the murder
Egypt and Afghanistan of almost 60 tourists in Luxor (including
six British nationals) in 199718. In 1992,
1.08 From the early 1980s onwards Afghan Arab veterans created the Armed
a quite different kind of terrorism Islamic Group (GIA) in Algeria, which again
began to emerge in the Middle East sought to overthrow the Government
in conjunction with the resurgence of and establish what they regarded as an
militant Islamist ideology12. In 1981 the Islamic state; over the next six years the
Egyptian President, Anwar Sadat, was GIA killed many civilians and members of
assassinated by individuals linked to the security forces. Over 100,000 people
two organisations, known as Islamic Jihad died in the Algerian civil war19.
and the Islamic Group, which both aimed
to overthrow the Egyptian Government 1.11 During this period terrorism from
and establish what they regarded as a Algeria and Egypt began again to spread
true Islamic state13. These groups at first overseas. In 1994, the GIA hijacked
had a purely domestic agenda. Though a French airliner, apparently intending
they were acutely aware of Palestine as to crash it into the Eiffel Tower, and in
a political issue their first priority was 1995 conducted a series of bombings in
not a Palestinian state. And they were France20. In 1993, terrorists attacked and
avowedly religious in outlook, claiming tried to destroy the World Trade Center in
both a religious justification for acts of New York21. They had links not only with
terrorism and describing their objectives the leader of the Egyptian Islamic Group,
in religious terms. They drew upon a long but also to Khaled Sheikh Mohammed,
history of Islamist thinking in Egypt and who planned Al Qa‘ida’s attacks in the US
in particular on the work of Sayyid Qutb, eight years later22.
who in turn was greatly influenced by
the Indian-born Islamist thinker Abul-Ala Al Qa‘ida and its associates
al Mawdudi14.
1.12 The group now known as Al Qa‘ida
1.09 The Egyptian terrorist organisations formed in the late 1980s from an
failed to overthrow the Egyptian organisation supporting Sunni Muslim
Government and many were arrested and foreign fighters in Afghanistan, led by
imprisoned15. Others however travelled Usama bin Laden23. It had close contacts
to Afghanistan to fight the Soviet army with other terrorist groups, notably from
which had invaded in 197916. They met Egypt (Ayman Zawahiri, bin Laden’s

Part 1 deputy was prominent in Egyptian Islamic
Jihad and had been imprisoned following
were disrupted. Many of the Al Qa‘ida
leadership were either killed or forced
Section 1 Sadat’s assassination)24. In 1989, bin to leave Afghanistan. Some went to
Laden left Afghanistan for Saudi Arabia Pakistan, where they established a base
where he denounced coalition action in the lawless Federally Administered
during the first Gulf War and in particular Tribal Areas (FATA) on the Pakistan/
the presence of coalition forces in the Afghan border; some went to Iran (where
country25. He subsequently moved to many were then detained); and others
Sudan where he was tolerated by the returned to Saudi Arabia.
new Islamist government and began
to establish a network comprising like- 1.15 In 2003 Al Qa‘ida in Saudi Arabia,
minded groups and individuals, many of operating under the title of Al Qa‘ida
whom had also fought in Afghanistan26. in the Arabian Peninsula, began a
terrorist campaign against Saudi and
1.13 Bin Laden returned to Afghanistan foreign targets, including expatriate
in 1996 and shortly after issued a housing compounds and the oil industry
statement that called for the overthrow infrastructure. A number of UK citizens
of the Saudi royal family and Government living and working in Saudi Arabia
and attacks on US interests in Saudi were killed or injured in these attacks35.
Arabia27. This was followed in 1998 Al Qa‘ida-related terrorism spread
by a fatwa announcing the formation elsewhere in the Gulf. In 2005 a suicide
of the World Islamic Front (which in attack took place against a British-run
effect brought together the Al Qa‘ida theatre in Doha, Qatar36.
organisation and the old Egyptian Islamic
Jihad) and calling explicitly for attacks on 1.16 Following the fall of Saddam
the US and its allies anywhere around Hussein in 2003, radical Islamist groups
the world. The statement specifically emerged in and travelled to Iraq to take
targeted civilians28. Shortly after, Al part in what they regarded as a new
Qa‘ida conducted suicide bombings of the jihad against coalition forces and the
US Embassies in Kenya and Tanzania29. Iraqi Government. The group led by the
An Al Qa‘ida operation to attack a number Jordanian Abu Musab al Zarqawi (who
of hotels in Jordan on the eve of the had also fought in Afghanistan) became
Millennium was foiled by the security particularly influential, attracting many
authorities30. (An operation to attack foreign fighters from North Africa and
Los Angeles airport at the same time, the Arabian Peninsula and conducting
which was not directly linked to Al Qa‘ida, an intensive campaign of suicide attacks
was also disrupted31.) Later in 2000, and kidnappings37. Al Zarqawi specifically
Al Qa‘ida attacked a US naval vessel at sought out and killed many Iraqi Shia,
harbour in Yemen32. On 11 September creating significant sectarian conflict38.
2001, Al Qa‘ida attacked the World Trade Though concerned at his targeting of
Center in New York and the Pentagon Muslims, Al Qa‘ida established links
in Washington33. In total almost 3,000 to al Zarqawi and in October 2004 his
people were killed. organisation was retitled Al Qa‘ida in
Iraq39. Al Zarqawi was killed in 200640.
1.14 The subsequent military action in
Afghanistan by an international coalition, 1.17 After 2003 Iraq was used as
including the UK, led to the fall of the a base for terrorist attacks in other
Taliban Government in late 200134. countries. In November 2003, terrorists
This deprived Al Qa‘ida of its training connected to the Al Qa‘ida infrastructure
facilities and significantly reduced in Iraq attacked two synagogues in
its operational capability. Al Qa‘ida’s Istanbul41. Days later they attacked the
aspirational programmes to create British Consulate and the branch of a
chemical and biological weapons and British bank42. Over 50 people were killed,
to develop radiological weapons (with including the British Consul-General.
the help of several disaffected Pakistani Members of al Zarqawi’s organisation
nuclear scientists, operating without conducted attacks in Jordan, including
the knowledge of their government) the bombings of three hotels in

Part 1 November 2005 which killed 60 people43.
Most were Jordanian.
remove Israeli forces then occupying
south Lebanon and try to establish an
Section 1 Islamic republic in Beirut. Though a Shia
1.18 Other Al Qa‘ida affiliates organisation, it resembled some other
subsequently emerged in North Africa, modern international terrorist groups
some from existing Al Qa‘ida cells and considered here, in having an explicitly
others from mergers with like-minded religious agenda and objective. In 1983,
terrorist groups. Al Qa‘ida in the Maghreb it was implicated in suicide attacks
was created in 2006 from the Salafist against the US Embassy and US and
Group for Preaching and Combat (GSPC), French military headquarters, killing over
which had been formed in 1998 as a 300 people52. Hizballah subsequently
splinter group from the GIA44. Elements developed into a large militia force,
of the Libyan Islamic Fighting Group, a Shia political party (with a major
founded in 1995 by Afghan veterans, influence in Lebanese politics), and a
merged with Al Qa‘ida in 200745. security and intelligence organisation53.
It was extensively involved in hostage
1.19 Al Qa‘ida also established taking in Lebanon, and implicated in an
connections to terrorist groups in South aircraft hijacking and in regular attacks
East Asia. Among the most important on Israel and Israeli interests (eg the
of these was Jemaah Islamiyah (JI) in Israeli Embassy in Argentina in 199254).
Indonesia, a violent extremist group It has also received support from the
established in 199346. JI was responsible Syrian Government.
for the 2002 Bali bombings which
killed 202 people, including 24 British 1.22 Iranian support for terrorism
nationals47. A further Bali attack in 2005 was not confined to Hizballah. Islamist
killed 2048. JI never became an Al Qa‘ida Palestinian organisations received
affiliate in the same way as some other financial and logistical support to
groups, but it continues to identify with conduct operations against Israeli
Al Qa‘ida‘s ideology. targets. After 2003, Iranian agencies
began to support Shia organisations in
1.20 From the early 1990s onwards Iraq, sometimes using Hizballah as an
terrorist attacks were also conducted intermediary. By 2006 weaponry used
in Russia and against Russian interests, by Hizballah in southern Lebanon
in connection with the war in Chechnya. was being deployed in Afghanistan by
Al Qa‘ida frequently referred to Russia organisations linked to the Taliban.
as an enemy of the order of the US49.
Terrorists took hostages in a Moscow
theatre in 2002 and at a school in
Beslan in Ossetia in 2004 and, also
in 2004, attacked the Moscow metro
and destroyed two airliners50. Over 500
people died in these incidents. Veterans
of the Afghan war and others from
across the Islamic and non-Islamic
world travelled to fight in Chechnya.
Some had links to Al Qa‘ida. Many saw
the war in Chechnya as a successor to
the war in Afghanistan.
Hizballah and Iran
1.21 Hizballah was established in

Lebanon in 198251. From the outset it
received significant Iranian Government
financial and logistical support and was
intended to advance Iranian interests.
Its initial objective was to attack and

Part 1 The impact on the UK
Section 2
Summary
By the early nineties some propagandists for

Egyptian and other organisations had settled in
London. Some British-based extremist organisations
began to support participation by people in this
country in terrorism overseas.
Al Qa‘ida recruited people from the UK and

established a network here. By late 2000, the UK
had itself become a target: the police and Security
Service disrupted an attempt to conduct an attack
in Birmingham city centre, well before the attacks
in the US on 11 September 2001, the subsequent
conflict in Afghanistan and the 2003 Iraq war.
Since 2001 the police and Security Service have

disrupted over a dozen attempted terrorist plots
in the UK. On 7 July 2005 four British terrorists
attacked the London transport system, murdering
52 people and injuring hundreds more. A second
planned attack two weeks later was unsuccessful.
Those involved in these operations and many of
the others were working with Al Qa‘ida.

Part 1 The impact on the UK
Section 2
2.01 The impact of militant Islamism on to attack US military targets in France

the UK was profound. In 1989 Ayatollah and Belgium.
Khomeni issued a fatwa calling for the
murder of Salman Rushdie55. Later that 2.04 Al Qa‘ida operations against the
year a suspected member of Hizballah UK and UK interests continued after UK
was killed by his own explosive device military intervention in Afghanistan in late
while preparing an attack on Salman 2001. In late 2001, a British national
Rushdie in London56. By the early 1990s was arrested after trying to destroy a
propagandists for terrorism in Algeria US aircraft over the mid-Atlantic using
and Egypt had settled in the UK. Some explosives concealed in his shoes59. An
provided fatwas purporting to legitimise associate withdrew from carrying out a
the activities of terrorist organisations. similar attack and was later arrested in
The GIA published a magazine here. In the UK60. By 2002, Al Qa‘ida had begun
1994 a media information centre linked to plan a major set piece attack on
to Al Qa‘ida was established in London. Heathrow airport: this was subsequently
abandoned61. A British national was
2.02 Throughout this period, emerging also arrested in 2003, implicated in the
British violent Islamist organisations planning of Al Qa‘ida attacks in Europe62.
publicly encouraged participation in
violent jihad overseas. Some of these 2.05 Attack planning unrelated to
organisations sought to take over the Al Qa‘ida also continued. In January
management of prominent mosques 2003, police and Security Service
(notably at Finsbury Park in London) which action disrupted attempts by an Algerian
they used as a base for radicalisation, terrorist cell in London (some of whom
propaganda activities and fundraising57. had fought in Afghanistan) to make
British nationals and others living in the contact poisons; during the arrest of
UK were recruited by Al Qa‘ida when one suspect in Manchester, a police
they travelled to Afghanistan and later officer was killed63. In April that year,
to Pakistan. Other UK-based individuals a British national (with a background in
and organisations which supported the extremist organisation, Al Muhajiroun)
violent jihad in Chechnya, Bosnia, and killed three people in a suicide attack in
Kashmir made contact and began to Tel Aviv; an accomplice failed to complete
work with Al Qa‘ida. Overseas terrorist his attack and was subsequently found
organisations, sympathetic to Al Qa‘ida’s dead nearby64.
aims and ideas, began to establish a
covert presence in this country. 2.06 By 2003, Al Qa‘ida had extended
its connections into the UK. Facilitators
2.03 In November 2000, the police and here supervised the recruitment of
Security Service disrupted an apparent British nationals and residents and then
attack being planned in the UK by arranged for them to travel to Pakistan
individuals here sympathetic to Al Qa‘ida: for paramilitary training. In March 2004
one had trained in Afghanistan. A month the police working with the security and
later a British-Pakistani killed himself in intelligence services disrupted a major
a suicide attack against Indian troops attack planned against potential targets
in Kashmir and two UK-based Algerians in and around London by British nationals
were implicated in an attempted Al who had been through these training
Qa‘ida attack in Strasbourg58. Two others facilities65. Another attack, led by an
were arrested in September 2001 for experienced Al Qa‘ida operative, was
supporting an Al Qa‘ida-related operation disrupted in August 200466. Together

Part 1 these two plots showed the increasing
ambition of Al Qa‘ida’s focus on the
members had attended military-style
terrorist training camps in the Lake
Section 2 UK: in both cases, the conspirators District and the New Forest, where the
considered using radiological materials participants included those involved in
to construct and detonate a ‘dirty bomb’ the unsuccessful attacks on 21 July
in London67. 2005. Seven men were jailed in total
for more than 30 years following their
2.07 The attack on the London transport conviction for offences including soliciting
network on 7 July 2005, in which 52 murder, providing training for terrorism
people were killed, and the unsuccessful and attending terrorist training.
attacks two weeks later were again
conducted mainly by British citizens, 2.11 In early 2007, the police and
some of who had training in Pakistan68. Security Service stopped a plot to
They were working with Al Qa‘ida and kidnap and kill a British soldier in the
were the first suicide attacks in the UK. UK72. On 29 June 2007 two potentially
Later in the year the police and Security viable car bombs were discovered in
Service disrupted an attempt by a London after a failed attack and the
London-based terrorist cell to buy large following day a burning car was driven
quantities of weapons, including machine into the terminal building at Glasgow
guns and rocket propelled grenades69. Airport: in December 2008, a man was
The intended use of these weapons convicted of conspiracy to murder and
has not been established. sentenced to life imprisonment for these
attacks73. This individual had links to
2.08 By 2005 the internet was enabling Al Qa‘ida’s affiliate in Iraq.
international terrorist networks to be
supported from the UK. In October 2005 2.12 On 22 May 2008, an attempt
police arrested a Moroccan born man at was made to detonate an improvised
his home in London from where he had explosive device (IED) at a restaurant
set up websites supporting Al Qa‘ida and in Exeter. The bomber suffered minor
published violent extremist material to injuries and fled the restaurant. In
incite and recruit suicide bombers in Iraq October 2008, he pleaded guilty to one
and elsewhere. In July 2007 he pleaded count of attempted murder and one count
guilty to charges including inciting of preparation of a terrorist act and was
terrorism on the internet (see also sentenced to life imprisonment.
‘The Internet and Prevent’, page 94).
2.13 Between 2001/02 and 2007/08,
2.09 Since the attacks in the summer almost 200 people were convicted of
of 2005, and despite repeated arrests terrorist-related offences74.
and disruption by the police and the
security and intelligence agencies, Al 2.14 As of 31 March 2008, there were
Qa‘ida has continued to attempt terrorist over 120 people in prisons in England
operations in this country. Two people and Wales remanded or sentenced under
were arrested, in Manchester in August the terrorism acts or for terrorism-related
2006 and at Heathrow in September offences. As well as those people who
2007, following an investigation into have already been convicted of terrorist
alleged planning for an attack in the offences, others (about one third of those
UK or the US70. They were subsequently in prison in connection with terrorism-
convicted of various offences relating to related offences) have been arrested
possession and collection of information and charged and are currently held on
for terrorist purposes, membership of remand awaiting trial. The complex nature
Al Qa‘ida and, in one case, the offence of terrorist trials means that they can
of directing terrorism71. often take many months to complete.
Discussion of cases which have yet
2.10 In September 2006, police arrested to come to trial or of trials which are
a number of people involved in the proceeding through the courts remains
recruitment and grooming of young men sub judice.
to commit murder. Some of the group

Part 1 The current threat to the uk
Section 3
Summary
The threat to the UK (and to many other countries)

now comes primarily from four sources: the Al Qa‘ida
leadership and their immediate associates, located
mainly on the Pakistan/Afghanistan border; terrorist
groups affiliated to Al Qa‘ida in North Africa, the
Arabian Peninsula, Iraq, and Yemen; ‘self-starting’
networks, or even lone individuals, motivated by
an ideology similar to that of Al Qa‘ida, but with no
connection to that organisation; and terrorist groups
that follow a broadly similar ideology as Al Qa‘ida but
which have their own identity and regional agenda.
All these groups respond to local challenges and

grievances. But Al Qa‘ida have sought to aggregate
them into a single global movement.
In recent years, and we anticipate for some years

to come, the major terrorist threat to the UK will
come from these four sources and this strategy
is structured accordingly. But our strategy contains
programmes relevant for tackling terrorist threats
from any quarter.

Part 1 The current threat to the uk
Section 3
3.01 The current threat to the UK forces, destabilise the Government

and its interests overseas from in Islamabad and play a part in the
international terrorism comes primarily insurgency in Afghanistan. It will also
from four interrelated sources: the Al maintain contact with affiliated groups
Qa‘ida leadership and their immediate and aspire to conduct attacks against
associates, located mainly on the other countries, notably the US and UK.
Pakistan/Afghanistan border; terrorist
groups affiliated to Al Qa‘ida in North 3.04 The Al Qa‘ida core group maintains
Africa, the Arabian Peninsula, Iraq, contact with cells operating in the UK,
and Yemen; ‘self-starting’ networks, in which British-Pakistanis constitute
or even lone individuals, motivated by the single largest ethnic group. These
the same ideology as Al Qa‘ida, but with cells look to the Al Qa‘ida leadership
no connection to that organisation; and for operational guidance and to provide
terrorist groups that follow a broadly training for new recruits from this country.
similar ideology as Al Qa‘ida but which Al Qa‘ida also has cells operating
have their own identity and regional elsewhere in Europe, but they are
agenda. All these groups respond to probably less numerous and capable
local challenges and grievances but than cells here.
Al Qa‘ida have sought to aggregate
them into a single global movement. 3.05 Al Qa‘ida has been and is presently
unable to achieve its key objective – to
Al Qa‘ida core use terrorism to inspire a mass uprising
which would overturn Islamic governments
3.02 Despite experiencing repeated and force western states to change their
setbacks since September 2001, there policies towards the Islamic world. But
remains a central or ‘core’ Al Qa‘ida it continues to have the capability to
organisation, led by bin Laden and al conduct significant mass casualty attacks
Zawahiri, and located primarily in the against its key targets.
FATA of Pakistan. This core organisation
has a formal leadership structure, with Al Qa‘ida ‘affiliates’
posts responsible not only for terrorist
operations in neighbouring Afghanistan 3.06 Al Qa‘ida inspires and advises
but also overseas. It probably consists affiliated terrorist groups around
of a few hundred people. the world. These affiliates have no
single format and there are significant
3.03 Al Qa‘ida core has a number of differences in the degree of control that
operational priorities. Survival is one: the Al Qa‘ida core can exert over them.
while the Al Qa‘ida senior leadership
continue to base their operations within 3.07 The fate of the affiliates has
the FATA, Pakistani military action and also varied. Al Qa‘ida in the Maghreb
US missile strikes have degraded their (ie North Africa) appears to be growing
ability to operate freely and effectively and absorbing smaller groups across the
within that area. It will be hard for both region. An absence of popular support
bin Laden and al Zawahiri, and other together with law enforcement and military
senior Al Qa‘ida members, to move to action have significantly reduced the size
and sustain another safe haven. The Al and strength of Al Qa‘ida in the Arabian
Qa‘ida core will continue to seek to work Peninsula (ie Saudi Arabia) and Al Qa‘ida
with other terrorist and insurgency groups in Iraq, but they retain some operational
to resist Pakistani military and security capability. Al Qa‘ida in Yemen has grown

Part 1 since its formation in 2006 and aspires
to conduct operations in Saudi Arabia.
3.12 The film maker Theo Van Gogh was
killed in November 2004 after the release
Section 3 of his film about violence against women
3.08 Al Qa‘ida affiliates seek to in Islamic societies. Mohammed Bouyeri,
destabilise specific governments in 27, was jailed for life on 26 July 2005,
the Islamic world and attack western for the murder after confessing to the
states or organisations which they judge killing, claiming he acted out of religious
are providing those states with support. conviction76. Bouyeri was associated with
Most affiliates have aspired or tried to a larger Dutch organisation known as
attack UK interests overseas and some the Hofstad group, which seems to have
have established contact with cells planned a range of other terrorist attacks
in the UK. The purpose of those cells in the Netherlands77.
is not always to attack targets in the
UK. Sometimes they aspire to support 3.13 Self-starting organisations have
attacks in third countries. conducted major attacks in many other
countries, notably Morocco and Egypt.
3.09 At present, no Al Qa‘ida affiliate In the UK, groups and individuals
has the capability and support required committed to violent extremism have
to overturn a government. But like the been inspired by Al Qa‘ida’s ideology,
core of Al Qa‘ida, they have the capability but have no connection to it. This wider
to conduct mass casualty attacks. This movement includes individuals who have
capability is extending from the countries little or no direct contact with any existing
in which they are based to neighbouring terrorist groups, but who have set out to
states and Europe. undertake attacks largely on their own
(most recently in Exeter78).
Al Qa‘ida inspired threats
A network of networks:
3.10 Over the past few years ‘self- other terrorist groups
starting’ groups and networks have
emerged which pose a terrorist threat 3.14 The terrorist threat to the UK and
and are motivated by Al Qa‘ida related UK interests overseas does not come
ideology, but have no connection to the only from Al Qa‘ida. A very wide range
Al Qa‘ida organisation. The names of of groups have also sought to attack
these groups change often, and many do UK interests overseas. Some of them
not have a name at all. They often last predate Al Qa‘ida. Many are primarily
only for short periods of time, perhaps to motivated by perceived and alleged
the point where a single law enforcement grievances with particular countries or
operation arrests the key members. ethnic groups. Some of these groups
have developed links to Al Qa‘ida and
3.11 Such groups are capable of have come to share parts of its ideology.
conducting lethal operations. The multiple On occasions, these groups may facilitate
bombings on the Madrid train system an Al Qa‘ida operation.
on 11 March 2004, which killed 191
people and wounded a further 1,755, 3.15 The groups of most concern to
were conducted by Moroccan, Syrian, the UK and to UK interests have a very
and Algerian nationals75 who were wide geographical range: the Near East
inspired by Al Qa‘ida and had links (Palestine, Israel, Lebanon); Iraq; South
to a Moroccan terrorist group with Asia (Afghanistan, Pakistan, India); North
Al Qa‘ida connections. But no direct Africa (the Maghreb, Libya and Egypt)
Al Qa‘ida link to the Madrid attacks and the Horn of Africa; and South East
has been confirmed. The leadership Asia (primarily Indonesia).
killed themselves to avoid arrest and
the group appears not to have survived.

Part 1 3.16 Many of these groups have had
or still have a presence in the UK itself.
Section 3 Some members of these groups (notably
those motivated by Kashmiri-related
issues) have been implicated in Al Qa‘ida-
related operations in the UK.
3.17 Hizballah is a Shia organisation that

has little or no contact with the Al Qa‘ida
movement. It receives significant funding
from Iran. The UK proscribed the military
wing as a terrorist organisation in July
2008 but is exploring certain contacts
at an official level with Hizballah’s
political wing, including its MPs.

Part 1 How the terrorist threat has changed
Section 4
Summary
The current international terrorist threat is quite

different from the terrorist threats we faced in
the past. Contemporary terrorist groups claim a
religious justification for their actions and have a
wide-ranging religious and political agenda; they
are no longer concerned with a single issue. Many
seek mass civilian casualties and are prepared to
use unconventional techniques (including chemical
or radiological weapons); they conduct attacks
without warning; they actively seek to recruit new
members in the UK and elsewhere around the world.

Part 1 How the terrorist threat has changed
Section 4
4.01 International terrorism in the UK and 4.03 International terrorist activity in and
against UK interests overseas during the against the UK since the early 1990s
1970s and 1980s was usually associated has been very different. Reflecting earlier
with the single issue of Palestine. Targets international trends, it draws explicitly on
attacked or threatened in the UK were the language of religion and its objectives
very often Israeli and/or Jewish. The are linked to a religious cause. Al Qa‘ida
groups responsible were predominantly is not a domestic terrorist group focused
secular and did not espouse Islamist on a single political issue or geographical
rhetoric or objectives. They claimed no area, but an international network with
religious justification for their actions. an international agenda. It aspires to be
They did not aim to cause mass a vanguard, provoking a violent uprising
casualties, which they judged would in the Islamic world which will overthrow
not assist in achieving their political existing political structures and establish
goals. The use of chemical, biological, a new world order80. Al Qa‘ida and other
radiological, or nuclear weapons was networks associated with it regard the
neither considered nor a practical option. UK itself as a key target and have sought
Those responsible for attacks here very to conduct operations here which would
often came into the country from outside cause mass casualties. Al Qa‘ida has
for that purpose and made little or no popularised and given spurious legitimacy
attempt to appeal directly to or recruit to suicide bombing and aspires to use
British nationals or people living here. chemical, biological, radiological and
nuclear weapons.
4.02 Many terrorist groups during
this period had relations with states 4.04 Al Qa‘ida and its associated
and the most lethal attack against UK networks also aim to recruit people
interests, on Pan Am 103, was itself in and from this country. They have
conducted by state organisations. But a detailed public narrative that claims
state sponsorship sometimes acted as to justify the killing of civilians and the
a constraint as well as a facilitator. Most means to disseminate that narrative
groups saw little purpose in attempting quickly and widely into homes in this
to overthrow governments across the country. They have consciously sought
Islamic world and therefore did not to use vulnerable institutions and
make the transition from terrorist to public places to provide a platform for
insurgency organisations79. their propaganda. They have had some
support, both explicit and implicit, from
some domestic extremist organisations.
Strategic context Page 37 Page 37

Part 1 4.05 At various moments Al Qa‘ida and
its associates have made the transition
Section 4 from terrorism to insurgency, notably in
Iraq and Afghanistan. As insurgencies
they have posed a different and a wider
threat to the UK and its interests than
their forebears.
4.06 Contemporary international terrorist

groups pose new challenges to this
country and its interests. To date, their
modus operandi has not been directly
comparable to that of Irish-related
terrorists or to international organisations
which have threatened this country
before. Their distinctive features have
had a major impact on all our counter-
terrorism work, including our legislation,
the tactics and methods of our law
enforcement and security and intelligence
agencies, on our work with communities,
and on our international partnerships81.
They have also had a major impact on our
military priorities. These are all described
in more detail below.

Threat levels
The Joint Terrorism Analysis Centre (JTAC)

is responsible for assessing the terrorist
threat to this country and UK interests
overseas. JTAC was established in 2003
to bring together expertise in terrorism
from across Government in a multi-
agency organisation. The threat level is
set against a five-point scale:
• Low – an attack is unlikely
• Moderate – an attack is possible,
but not likely
• Substantial – an attack is a strong
possibility
• Severe – an attack is highly likely
• Critical – an attack is expected
imminently
Ministers play no part in the decision-

making process. The threat level has
been publicly available since August
2006, including on the Security Service
(MI5) website.
The current threat level from international

terrorism is severe, meaning that an
attack is ‘highly likely’. This has been the
threat level since 2006, except for two
periods – in August 2006 and in June
2007 – when it was raised to critical
in response to specific terrorist activity.
www.cabinetoffice.gov.uk/security_and_
intelligence/community/threat_levels.aspx
www.mi5.gov.uk/output/news-threat-level-
updates.html

Part 1 Strategic factors
Section 5
Summary
While particular events or individuals are often

credited with a major role in the emergence of
contemporary international terrorist networks, we
believe it is more useful in developing our strategy
to focus on the effect and impact of four deeper
and longer term strategic factors:
• unresolved regional disputes and conflicts
(particularly Palestine, Afghanistan, Bosnia,
Chechnya, Lebanon, Kashmir and Iraq) and
state failure and fragility
• the violent extremist ideology associated with
Al Qa‘ida, which regards most governments in
Muslim countries as ‘un-Islamic’ or apostate;
claims that these governments are sustained by
western states who are engaged in a global attack
on Islam; and considers violent action (described
as jihad) to be a religious duty incumbent upon
all Muslims
• modern technologies, which facilitate terrorist
propaganda, communications and terrorist
operations, and
• radicalisation – the process by which people
come to support violent extremism and, in some
cases, join terrorist groups. Radicalisation has
a range of causes (including perceptions of our
foreign policy), varying from one country and one
organisation to another.

Part 1 Strategic factors
Section 5
5.01 Four factors have led to the breakdown of law and order, and rapid
emergence of the contemporary population increases.
international terrorist networks that
pose a threat to the UK and its interests 5.05 Fragile and failed states are unable
overseas: conflict and instability, ideology, to meet the needs of their population
technology, and radicalisation. Each has and lack the capacity to effectively
had important effects and these effects tackle violent extremism. They can
have then reinforced one another. None provide uncontrolled spaces in which the
of these factors on their own would create infrastructure of terrorism may flourish,
the threat we face. It is a combination of where terrorist organisations not only
them all which has a significant impact. run training facilities but also provide
material support and protection to the
Conflict and instability local population which would normally be
provided by the state itself. Al Qa‘ida grew
5.02 Terrorism has usually been under the Taliban regime in Afghanistan
related to unresolved regional disputes and now depends on a safe haven in
and conflicts. The current wave of the FATA of Pakistan. Al Qa‘ida affiliates
international terrorism is specifically exploit ungoverned areas in Yemen, the
connected to disputes and conflicts which Sahel, and Somalia.
involve Muslims and the Islamic world.
5.06 Failed states can also facilitate
5.03 Palestine, Afghanistan, Bosnia, the transition of terrorist groups into
Chechnya, Lebanon, Kashmir, and Iraq larger and more ambitious insurgent
have become focal points for terrorism organisations that challenge the authority
over the past 20 years. In each of these of the government itself. The poorer the
areas terrorist groups have emerged country, the higher the percentage of
and grown, as disputes have remained terrorist groups that reach the insurgency
unresolved, conflict has persisted, and stage84. And when terrorist groups
people have suffered. By participating become insurgency organisations they
in these conflicts, terrorist organisations become much harder to defeat. Since
have acquired operational expertise 1945, successful counter-insurgency
and experience; developed quickly the campaigns have lasted for an average
technology of terrorism (notably IEDs) 82; of 14 years85.
and attracted local and international
support, often by claiming to provide the 5.07 Conflict and state fragility or failure
only solution to long-standing grievances. cause significant internal population
displacement and migration. In the 1970s
5.04 Terrorist groups can also thrive and 1980s some political refugees and
in fragile and failed states. States others, escaping from authoritarian
become fragile and fail for a range of and repressive governments in the
reasons of which conflict is itself one Islamic world, arrived in Europe and
(of the top 20 failed states in a 2008 established European factions of Islamist
Failed States Index, almost all are parties86. Since the late 1980s small
currently experiencing violent conflict numbers of people who had supported
or political violence83). But state or been actively involved in terrorism in
fragility and failure have wider causes, the Islamic world also fled to Europe,
including economic collapse, poor creating an international network of
governance, the abuse of human rights, like-minded activists, providing what had
the ready availability of weapons and been domestic terrorist groups with an

Part 1 international network. The movement
of violent extremists from North Africa
them regularly. Between 1981 and 1997
some 50 suicide attacks around the
Section 5 in the late 1980s and early 1990s, in world caused an estimated 850 fatalities;
part because of the Algerian civil war, in 2005 alone some 330 attacks caused
led directly to the development of the death of over 3,000 people88.
networks in France and then the UK.
A small percentage of refugees from “…any of the hypocrites in Iraq, or Arab
other countries (notably Somalia and rulers who have helped America in
Kurdistan) have also had a significant their murder of Muslims in Iraq, anyone
impact on the security of a number of who approved of their actions and
European states, including the UK. followed them into this Crusader war by
fighting with them or providing bases
Ideology or administrative support...should be
aware that they are apostates who are
5.08 Violent extremist ideology, outside the community of Islam; it is
associated with Al Qa‘ida, is the second therefore permitted to take their money
factor which has generated the current and their blood.”
phase of international terrorism.
Usama bin Laden, Interview,
5.09 This ideology considers most Al-Jazeera TV, 11 February 2003
Islamic governments to be ‘un-Islamic’ David Aaron, In Their Own Words:
or apostate. It challenges the legitimacy Voices of Jihad (Santa Monica: RAND
of Israel and claims that western states Corporation, 2008), p.80
sustain ‘un-Islamic’ governments and are available at www.rand.org/pubs/
engaged in a global attack on Islam. It monographs/2008/RAND_MG602.pdf
therefore tries to turn grievances about
specific regional issues into grievances 5.11 The ideology associated with
about the West. Citing historical precedent Al Qa‘ida makes terrorism seem a test
and religious doctrine, the ideology of faith. It cynically exploits and abuses
states that militant jihad against the the strong Muslim commitment to the
so-called oppressors (be they Muslim wellbeing of other Muslims and alludes to
or western governments) is a religious a wide range of political ‘touch points’ of
duty incumbent upon all Muslims and great historical significance in the Islamic
that those who follow the call will be world. Al Qa‘ida often appears to offer
rewarded in the afterlife. The ideology both an explanation and a solution to
calls for the overthrow (by militant jihad) grievances which Islamic states accept,
of Islamic governments and the imposition but seemingly cannot resolve.
of shari‘a under a new pan-Islamic
Caliphate. It urges attacks on western 5.12 The ideology is not all new. It draws
states and civilians and seeks the selectively on many sources, including
removal of any western presence from Islamist theory from India and Egypt
the Islamic world87. and the ideology of earlier Egyptian
terrorist organisations. But Al Qa‘ida has
5.10 Al Qa‘ida’s ideology advocates not also issued its own fatwas, legitimising
only martyrdom in the cause of violent terrorism and validating its own ideology,
jihad but also suicide terrorist attacks. and inspired others to issue fatwas on its
Al Qa‘ida has not always supported behalf; fatwas legitimising suicide attacks
suicide attacks (they date from 1998 by other terrorist organisations have also
but became a key theme with 9/11) and had a major impact89.
other organisations (including the Tamil
Tigers, Hizballah and Palestinian groups) Technology
have done so for longer. But Al Qa‘ida’s
support for suicide operations has 5.13 Rapid technical change has had
made them far more common than was two key effects on terrorism, relating to
previously the case and some countries communications and tactics.
(notably Afghanistan) which had rarely
suffered from suicide attacks now face

Part 1 5.14 The communications revolution
has made easier the spread of violent
Radicalisation
Section 5 extremist ideology and propaganda. The 5.18 Radicalisation in the context of
number of websites related to terrorist this strategy is the process by which
groups or supporting violent extremism people come to support terrorism and
has increased from as few as 12 in violent extremism and, in some cases,
1998 to over 4,00090. Al Qa‘ida has then to participate in terrorist groups.
its own media organisation, Al-Sahab, Radicalisation is the fourth key driver of
which produced just six audio and video contemporary international terrorism and
messages in 2002 but nearly 100 in one sense the most important: none
in 200791. of the other strategic factors identified
here would enable terrorism unless
5.15 Contemporary terrorist organisations people were also prepared to support
design, conduct and record their it. Radicalisation is partly the result of
operations with a view to publicity. On conflict, ideology and technology, but
violent extremist websites films of terrorist has additional causes; some of these
attacks are routinely combined with other are described below.
pictures from conflict areas which record
the suffering of Muslim communities. Causes
Al Qa‘ida’s ideology forces local events
5.19 There is no single cause of
into a global narrative; technology
radicalisation. The motivation of those who
constructs and illustrates that narrative
support violent extremism and terrorism
and conveys it to a global audience.
often varies from one country and one
terrorist organisation to another. Within
5.16 The communications revolution
terrorist networks the motivation as well
also facilitates a two-way dialogue
as the background of those in leadership
between organisations and their actual
positions differs from those who are not.
or prospective members. That dialogue
enables fundraising, recruitment and
5.20 But conflict and the failure of states
some training and operational planning:
create grievances which can play a key
to a limited extent the internet has
role in the radicalisation process. Many
superseded the terrorist training camp.
Muslims as well as non-Muslims believe
that the West (notably the US and the
5.17 Technology has also enabled new
UK) has either caused conflict, failure
tactics. Often facilitated by web-based
and suffering in the Islamic world or
communications, terrorists have learned
done too little to resolve them. Military
how to harness and share emerging
intervention in Iraq and Afghanistan
technology, making it easier to plan
(and consequent civilian casualties),
operations which can have a more lethal
perceived western inaction in Palestine
effect. Terrorists aspire to develop and
and alleged support for authoritarian
use chemical, biological, and radiological
Islamic governments have all created
weapons and look to the internet to
controversy and anger. The treatment
assist them.
of detainees in Guantanamo Bay (and
previously in Abu Ghraib) is widely
“…the strongest weapon which the
felt to demonstrate an unacceptable
mujahideen enjoy – after the help and
inconsistency in the commitment of the
granting of success by God – is popular
West to human rights and the rule of
support from the Muslim masses in
law. In recent polling across four Islamic
Iraq and the surrounding countries...
states a significant majority judged that
in the absence of this popular support,
it was the aim of the US to ‘weaken and
the Islamic mujahid movement would
divide the Islamic world’; a significant
be crushed.”
minority thought the purpose of the ‘war
on terror’ was to achieve US political and
Letter from Ayman Zawahiri to Abu
military domination ‘to control Middle
Musab al Zarqawi, 9 July 2005
East resources’92.
available at www.dni.gov/press_releases/
letter_in_english.pdf

Part 1 5.21 Many people in the Muslim world
also believe that these policies betray
important. Radicalisation seems to be
related directly to a crisis in identity
Section 5 a more fundamental failure in western and, specifically, to a feeling of not
states to respect or understand Islam being accepted or not belonging98. This
itself. Further evidence of that view is is itself the result of a range of factors,
often found in western media and which may include the experience of
culture93, regarded as hostile towards discrimination and inequalities, racism,
and uninformed about Islam and Muslims: recent migration and more generally
the reactions to a recent Dutch film about a lack of affinity with and disconnect
aspects of Islam and to the 2005 Danish from family, community and state. One
cartoons both indicate the significance extremist organisation in the UK has
of this issue. explicitly said that discrimination and
racism create conflicts of identity which
5.22 Failing and fragile states can cause make recruitment possible; those drawn
additional grievances, deriving from to this organisation believe that lack of
experiences of insecurity, the abuse social mobility has stopped them realising
of basic rights, unfulfilled economic their full potential99. In this country, and
expectations and the failure of the Europe more widely, there also seems
political process. to be a link between criminality and
radicalisation (the former occurring
5.23 Grievances do not always or often before as well as after the latter)100.
lead to radicalisation and to violent
extremism. But they can make people 5.25 There is a further factor which
more open to the ideology associated seems to be common to the radicalisation
with Al Qa‘ida, support for which may process in many countries and across
then lead to acts of terrorism. It many organisations. Radicalisation
appears to be the intensity of political is usually a social process, involving
and economic grievances that often extensive interaction with an influential
motivates and characterises members and a supportive peer group, often
of terrorist networks94; people who including a charismatic role model and
believe that the aim of western foreign ideologue. In some cases this group
policies is to weaken and divide the is part of a wider terrorist organisation.
Islamic world are more likely to approve In other cases it is ‘self-starting’, perhaps
of terrorist attacks against civilians95. In initially motivated by adventurism and
some fragile and failing states or areas the lure of conspiracy as much as a
and for some terrorist organisations, clearly defined ideological commitment
the experience of poverty and exclusion to violence. In many cases membership
can create specific grievances which of and recruitment into this peer
may then lead to radicalisation. In the group precedes and then facilitates
FATA, recent research suggests that radicalisation itself. In this country,
poverty and illiteracy as well as the these supporting groups have been able
conflict in Afghanistan are key factors to provide young people in particular with
leading to religious extremism96. Terrorist help and advice which may not have been
organisations in the developing world available through traditional religious
(notably North Africa) have specifically institutions and organisations101.
and successfully sought members from
among the urban poor97. Others have 5.26 It follows from this very brief review
attracted support by providing services that although many contemporary terrorist
which in the developed world would be organisations have titles which draw on
expected of the state. religious concepts and purport to have
explicitly religious objectives, people do
5.24 In many countries, including the not join them only or often mainly for
UK, people are not only vulnerable to simply religious reasons. Indeed many
radicalisation because of political and terrorists who associate with Al Qa‘ida
economic grievances. A range of social have little or no religious understanding
and psychological factors are also or knowledge.

Part 1 5.27 Factors leading to radicalisation in
this country and overseas are considered
• And radicalisation can compromise
the integrity of parts of the law
Section 5 further in the Part Two of this strategy enforcement and security apparatus,
(see Section Nine, page 82 onwards) sometimes leading to complicity
which also outlines the Government’s between terrorists and those tasked
intended response to this problem. to disrupt them.
Extent and effects of radicalisation

5.28 Polling and research across the
Islamic world suggests that support for
Al Qa‘ida, bin Laden, and suicide
bombing have all declined in the last
few years. But in Pakistan and Indonesia
over a third of respondents in 2008 still
expressed confidence in bin Laden102. In
late 2006/early 2007 an average of 15%
of respondents across four representative
Muslim countries supported Al Qa‘ida’s
attack on Americans – though fewer
supported attacks on civilians103.
According to one of the largest polls
conducted in the Islamic world some
7% of respondents thought the 9/11
attacks were ‘completely justified’104.
5.29 Polling indicates that much

greater numbers support political goals
associated with Al Qa‘ida (74% favouring
US military withdrawal from Islamic
countries, 71% the introduction of
shari‘a, and 65% a new Caliphate105).
5.30 Radicalisation has three

important effects:
• Only a small proportion of those
who express support for Al Qa‘ida
or Al Qa‘ida’s attacks will be prepared
to participate in terrorism. But it is
from among those who do hold these
views that terrorist groups are able
to recruit and survive. Radicalisation
is thus vital to the success of the
terrorist enterprise.
• Support for terrorists or their wider
political agenda can also act as a
constraint on some governments in
the Islamic world who may attract
significant domestic criticism and
even cause domestic unrest if they
take law enforcement action against
terrorist groups or publicly challenge
aspects of terrorist ideology.

Part 1 The future
Section 6
Summary
Some of the factors that currently sustain

international terrorism are likely to persist:
• Many of the conflicts and disputes exploited by contemporary terrorist
organisations show no signs of early resolution.
• Failing states (or areas with failing governance) are likely to remain a factor
for the foreseeable future.
• Evolving technology will continue to enable terrorism and in some ways
make it easier.
• Some people in the Islamic world are likely to continue to support the political
agenda associated with Al Qa‘ida – although fewer will support Al Qa‘ida’s
operational activities.
Other trends are likely to constrain the ability of

terrorist organisations to threaten the UK and its
interests overseas:
• They will continue to lose their more experienced members (including the
leadership of Al Qa‘ida) to multinational law enforcement, intelligence,
and military operations.
• They are vulnerable to the reform and regeneration of failing states, which may
deprive them of the bases on which they depend.
• They are short of money and funding.
• Their ideology, based upon a selective interpretation of Islam, contemporary
politics and history, is rejected by many Muslims across the Islamic world.
• They have failed. Al Qa‘ida and their affiliates have not succeeded in creating
mass movements to overthrow some governments and change the policies
of others. Their indiscriminate killing of Muslims has eroded their support and
their credibility.

Part 1
Section 6
Against this background our planning assumptions

set out the likely direction of the terrorist threat over
the next three years:
• Under pressure from the international community, the Al Qa‘ida organisation is
likely to fragment and may not survive in its current form. Networks and groups
associated with Al Qa‘ida will have more autonomy. They will continue to operate
in fragile and failing states.
• Smaller terrorist organisations will have access to new technology and may become
capable of conducting more lethal operations.
• The ideology associated with Al Qa‘ida will outlive changes to its structure.
• As the structure of Al Qa‘ida changes, the terrorist threat in and to the UK may
diversify towards smaller ‘self-starting’ organisations. Continued law enforcement,
security and intelligence work will be needed to contain the threat we face.
• But the ideology which sustains terrorism will be subject to greater challenge
in and by communities in this country, notably but not only by British Muslims,
making it harder for terrorists to operate here and to recruit people to their cause.

Part 1 The future
Section 6
6.01 Historically, most terrorist groups with improved surveillance and

have failed to achieve their objectives. remote reconnaissance capability.
The most resilient terrorist groups have And technology may provide more
a large number of members, follow an lethal weapons. Some may be created
ideology which draws upon religion, from tools and techniques found
and maintain alliances with other on or through the internet. Others
terrorist organisations106. may be obtained via state sponsors
or by witting or unwitting release of
6.02 Al Qa‘ida, its affiliates, and information from state programmes.
associates have all these features. There
• Grievances and other factors will
is a risk that significant strategic factors
continue to make people in the Islamic
could continue to work in their favour.
world vulnerable to the ideology
• Conflicts and disputes exploited by associated with Al Qa‘ida. Smaller
contemporary terrorist organisations numbers may be prepared to support
show no signs of early resolution. attacks on civilians.
Climate change, demographic and
• Outside the Islamic world a very
resource pressures, ethnic conflict, and
small proportion of Muslims will also
economic crises will tend to increase
be prepared to endorse Al Qa‘ida’s
the risk of state failure. Of 27 countries
operational agenda. Polling suggests
recently identified as being at risk of
that there remains some support for
conflict and state failure (against a set
Al Qa‘ida and for terrorism among
of 14 indicators)107 half have already
Muslims living in the UK and elsewhere
experienced terrorist threat or attacks.
in Europe108.
Some fragile states are already strong
points for Al Qa‘ida and other groups. • A limited number of state sponsors
will have the capability to significantly
• Regional conflicts and state failure
increase the scale of the
will continue to influence opinion
terrorist threat.
among diaspora communities living
in the developed world. In certain
6.03 The very top leadership of
circumstances this will increase the
Al Qa‘ida (bin Laden and al Zawahiri)
vulnerability of some members of
may be captured or killed. This would
these communities to radicalisation.
cause significant disruption to the
• Al Qa‘ida will continue to be able to organisation in the short term and lead
set its own theological agenda. to changes in its structure and command
Western support for and at times and control. It will not necessarily make
military intervention in failing states the broader Al Qa‘ida movement less
will continue to be used as evidence lethal. Some influential members of
in support of Al Qa‘ida’s ideology. Al Qa‘ida have long favoured a more
decentralised operating model and
• Technology will continue to enable
regarded the hierarchical centralised
terrorism. Terrorists will have more
organisation developed under bin Laden
scope to communicate with each
and al Zawahiri as a strategic mistake109.
other, sometimes with less chance
of detection. Online communications
6.04 But Al Qa‘ida and its associated
may enable extremist messaging
groups remain vulnerable:
to reach vulnerable individuals
faster than conventional media. • They are likely to continue to lose their
Technology can provide terrorists more experienced members to law

Part 1 enforcement, intelligence, and military
operations. The experience of the
The next three years: planning
assumptions
Section 6 movement will be seriously depleted.
6.05 Against this background, our
• They rely upon the conditions created
three-year strategy is based on the
by failed and fragile states. More
following planning assumptions:
effective governance in the FATA alone
would be disruptive: other fragile • Assuming continued international
states do not offer the same proximity pressure, the Al Qa‘ida ‘core’
to Afghanistan or comparable security. organisation is likely to fragment and
may not survive in its current form. The
• They need money. The motivation
core group will not be able to achieve
and loyalty of core members of Al
its strategic goal (popular unrest and
Qa‘ida are influenced by its ability
uprising leading to the overthrow of
to pay salaries and support families
governments and the establishment
(including the families of those
of a Caliphate), but it will still have
who have been killed). Disruption
the capability to conduct significant
of fundraising can cause Al Qa‘ida
terrorist attacks.
serious difficulties.
• The stability, security and prosperity of
• Al Qa‘ida’s ideology is rejected by
the FATA of Pakistan will remain critical
many Muslims worldwide and by
in determining the future of Al Qa‘ida,
the vast majority of Muslims in the
of Pakistan itself and of the insurgency
UK. It is based upon a selective
in Afghanistan.
interpretation of Islam: Al Qa‘ida
and its associates are vulnerable to • Al Qa‘ida affiliates will develop more
effective theological challenge. This autonomy. Associated networks and
has been demonstrated very clearly ‘self-starting’ groups will become
by the recent refutation of Al Qa‘ida more prominent and develop
ideology by Sayyid Imam Al Sharif, significant capabilities. They will
also known as Dr Fadl, once a close continue to gravitate towards and to
associate of al Zawahiri, member of challenge fragile and failing states
Egyptian Islamic Jihad and important (notably Afghanistan, Iraq, Yemen,
ideologue for Islamist mujahideen. and Somalia). They will also have
Fadl has not only systematically the capability to conduct significant
identified the flaws in Al Qa‘ida terrorist attacks, including against
thinking but also exposed the harms western states.
it has caused to Muslims around
• It will continue to be difficult and
the world110.
at times impossible to conduct
• Al Qa‘ida has failed to meet its conventional law enforcement
ultimate objectives: its indiscriminate counter-terrorist operations in
violence, often directed against and with fragile and failing states.
Muslims, can easily lose the popular
• Terrorist organisations will have access
support on which it depends. Parts of
to more lethal technology. Scientific
the wider radical Islamist movement
training and expertise will have even
(in Egypt and in Libya) have already
greater significance for terrorist
stopped operating and sought peace.
organisations because technology
Others (notably in Iraq and Saudi
will be able to compensate for the
Arabia) have lost popular support
vulnerabilities they will have. Terrorists
and have ceased to be effective.
will continue to aspire to develop
• For Al Qa‘ida, communications or steal and then to use chemical,
technology is both a strength and biological, radiological and
a weakness. It can as quickly nuclear weapons.
communicate Al Qa‘ida’s failures,
errors and shortcomings as it can
convey its alleged success.

Part 1 • Terrorism which threatens the UK and
its interests overseas will continue
Section 6 to depend less on state sponsorship
than on state failure. But resurgent
state sponsorship could significantly
increase the threat we face.
• The ideology associated with
Al Qa‘ida will outlive any changes
to its structure. It will continue to
attract support. A small but
significant number of people
will remain committed to violent
extremism. The terrorist narrative
will continue to exploit political
events and individual grievances.
• Our ability to reach and persuade
those who already support violent
extremism will be limited. But the
ability of the international community
to reach and persuade those who
hold grievances or are vulnerable to
other causes of radicalisation will be
much greater. The extent to which we
can collectively do so will significantly
determine the future shape of the
terrorist threat.
• As the core group of Al Qa‘ida
fragments so the threat in the UK
itself may diversify. ‘Self-starting’
organisations, old Al Qa‘ida affiliates
and other terrorist groups may all
become more important. Continued
law enforcement, security and
intelligence work will be needed to
control the changing threats we
may face.
• But the ideology behind violent
extremism will be subject to greater
challenge in and by communities in
this country. This will have an impact
on the support which terrorism can
command and the way in which
terrorists will operate.
6.06 A coherent counter-terrorism

strategy, addressing both the immediate
threat and the factors which drive it, can
make Al Qa‘ida and like-minded groups
ineffective in the UK and against UK
interests overseas. But the challenges
will continue to be considerable.

Part 2 The contest Strategy
The contest Strategy Page 53

Part 2 The UK strategy for countering international terrorism
Section 7
Summary
Aim
The aim of CONTEST is to reduce the risk to the

United Kingdom and its interests overseas from
international terrorism, so that people can go about
their lives freely and with confidence.
CONTEST is one part of the first UK National Security
Strategy, published in 2008.
Principles
CONTEST is based on principles that reflect both our core values, the lessons we and
others have drawn from experiences of terrorism to date, and the broader security
principles set out in the National Security Strategy:
• We will continue to regard the protection of human rights as central to our
counter-terrorism work in this country and overseas.
• Our response to terrorism will be based upon the rule of law.
• We will always aim to prosecute those responsible for terrorist attacks
in this country.
• Our strategy will tackle the causes as well as the symptoms of terrorism.
• Reducing support for terrorism and preventing people becoming terrorists are vital:
without popular support terrorism is unsustainable.
• Our strategy must be responsive to the threat which can be created by rapidly
evolving technology.
• We recognise that partnerships in this country and overseas are essential to
our success and that these partnerships depend on openness and trust.
• The threat we face crosses our borders and is international in scope.
We will depend upon our allies as they will depend on us.

Part 2
Section 7
Strategic framework
As in 2006, delivery of the strategy is organised around four workstreams:

• Pursue: to stop terrorist attacks
• Prevent: to stop people becoming terrorists or supporting violent extremism
• Protect: to strengthen our protection against terrorist attack
• Prepare: where an attack cannot be stopped, to mitigate its impact
Each workstream has objectives which reflect the assumptions we have made
about the future threat and the principles to which we will hold. For each objective
we have a series of supporting programmes.
The strategy now places increased emphasis on a number of issues which are
common to all of the main workstreams. They include the CBRNE threat.
CONTEST is intended to be a comprehensive programme: work on Pursue and

Prevent reduces the threat from terrorism; work on Protect and Prepare reduces
the vulnerability of this country to attack.
CONTEST coordinates closely with our counter-insurgency work overseas, notably

in Iraq and Afghanistan, the purpose of which is to stop movements which aim to
overthrow recognised governments by armed conflict and subversion. The UK’s
counter-insurgency work in support of the Governments in Iraq and Afghanistan has
been led by the FCO and MOD with our Armed Forces playing the major operational
role. Like our counter-terrorist work, counter-insurgency makes a vital contribution
to our national security.

Part 2 The UK strategy for countering international terrorism
Section 7
7.01 The United Kingdom’s strategy overseas, and we will challenge those
for countering international terrorism who seek to defend its perpetrators.
was established in 2003 and is known
• We recognise that this counter-terrorism
as CONTEST. Details of the strategy were
strategy must tackle causes as well as
published in July 2006111. It is an integral
symptoms: neither conventional law
element of the UK’s National Security
enforcement, nor security or military
Strategy published for the first time in
operations will be sufficient to address
March 2008112.
the threat. We will need to continue
to focus on conflict and instability,
Aim
ideology, technology and radicalisation.
Other Government policies which are
7.02 The aim of CONTEST is:
not specifically about counter-terrorism
…to reduce the risk to the United
will continue to be relevant to this
Kingdom and its interests overseas
broader agenda.
from international terrorism, so that
people can go about their lives freely • Reducing support for terrorism and
and with confidence. violent extremism and preventing
people becoming terrorists are vital.
Principles They are the objectives of a key
workstream of CONTEST and an
7.03 Our strategy for countering important aim of counter-terrorism
international terrorism is based on related communications. Without
key principles that reflect a broader popular support terrorism
framework set out in the National Security is unsustainable.
Strategy and the lessons drawn from our
• The strategy must ensure the
experience of terrorism to date113:
protection of sites in this country
• Our approach to national security in which are vulnerable to terrorist
general and to counter-terrorism in attacks. These include not only the
particular is grounded in a set of core UK’s critical national infrastructure
values. They include human rights, the but also places where people live
rule of law, legitimate and accountable and work. By continually enhancing
government, justice, freedom, tolerance the UK’s border security the
and opportunity for all114. Government will also seek to ensure
that terrorists cannot enter this
• In support of CONTEST, the Government
country from overseas.
will take only those measures
necessary to address the threat and • Our strategy must also anticipate
that are proportionate to it. the possibility that terrorists may
succeed in conducting an attack here.
• Work to stop terrorist attacks in this
It will ensure that we are prepared to
country will always aim to prosecute
respond effectively to any attack and
those responsible through the criminal
to mitigate its consequences.
justice system. Criminal investigations
into terrorist attacks will continue to • The strategy must remain responsive
be led by the police supported by the to new technology sought by terrorists,
security and intelligence agencies. notably chemical, biological, radiological
and nuclear weapons, to changing
• We condemn terrorism whenever and
methods of attack, and new targets.
wherever it occurs, at home or

Part 2 • This strategy recognises that
partnerships are vital to success.
against torture or inhuman or degrading
treatment or punishment (Article 3), the
Section 7 Government cannot deliver right to liberty (Article 5), the right to fair
CONTEST on its own. In this country, trial (Article 6), as well as the right to
CONTEST depends not only on family life and privacy (Article 8) and the
policing, the agencies, the Devolved prohibition of discrimination (Article 14).
Administrations and a wide range of
Departments but in particular upon 7.06 A fundamental challenge facing
the support of communities, industry, any government is to balance measures
academia and everyone who lives intended to protect security and the right
here. All communities need to stand to life with the impact they may have on
up to and reject violent extremism. the other rights that we cherish and which
form the basis for our society. Throughout
• The threat faced by the UK crosses
this strategy we have explained how and
national borders. Terrorist incidents
where this balance has been sought,
here usually have an international
and have described the safeguards in
connection; international terrorist
place to ensure that individuals’ rights
organisations threaten the UK’s
are respected.
interests overseas; people from this
country have participated in terrorist
The strategic framework
attacks and insurgencies in other
countries. An international response
7.07 Delivery of the strategy continues
is vital to the success of every part
to be organised around four principal
of this strategy. We will work closely
workstreams:
with the priority countries which have
the greatest impact on the threat to • Pursue: to stop terrorist attacks
the UK and its interests overseas and
• Prevent: to stop people becoming
with strategic partners and multilateral
organisations. We will depend on them.
extremism
But they will also depend on us.
• Protect: to strengthen our protection
CONTEST and human rights against terrorist attack
• Prepare: where an attack cannot be
7.04 The importance we attach to
stopped, to mitigate its impact
the protection of human rights in our
counter-terrorism work, in this country
7.08 Each workstream has objectives
and overseas, is reflected in the aim
which reflect the assumptions we have
of this strategy, in its principles, in the
made about the future threat and the
programmes which comprise it and
principles to which we will hold. For
through the organisations responsible
each objective we have a series of
for its delivery.
supporting programmes.
7.05 Terrorism threatens some of our
7.09 These four workstreams also
most fundamental rights, including the
combine together to deliver the overall
right to life itself. Our counter-terrorism
aim. Work on Pursue and Prevent
strategy aims to ‘enable people to
reduces the threat from terrorism;
go about their lives freely and with
while work on Protect and Prepare
confidence’. It seeks to preserve and
reduces the UK’s vulnerability to attack.
protect the rights to which we are
Reducing the threat and reducing the
accustomed because it is on these
UK’s vulnerability combine to reduce the
rights that our freedoms depend. It also
risk to the UK and its interests overseas
seeks to promote these rights overseas.
from international terrorism.
The European Convention on Human
Rights (ECHR), given domestic standing
7.10 Details of past and planned work
in the 1998 Human Rights Act, sets out
in each of these workstreams and an
these rights very clearly. They include
explanation of some of the issues which
the right to life (Article 2), the prohibition

Part 2 they raise are given in the following four
sections of this paper.
• A new cross-cutting strand of work on
containing the threat from an attack
Section 7 using chemical, biological, radiological,
The evolution of our strategy nuclear and explosive (CBRNE)
materials.
7.11 Although the framework remains
• Stronger links between our domestic
as it was in 2003, this strategy reflects
and international work given the
the evolving threat and its underlying
seamless nature of the threat to
causes, as well as the achievements
the UK and its interests overseas.
and lessons learned to date. The revised
Examples include greater dialogue
strategy features:
with communities in the UK on British
• A range of programmes (some part of foreign policy and more Prevent work
CONTEST but others connected to it) overseas, notably in areas from which
intended to address what we regard our diaspora communities derive.
as the four key drivers of terrorism and
• More detail on the delivery of
to reflect our core principles. These
CONTEST and on our measurement
programmes are distributed across the
and assessment of its impact.
four main CONTEST workstreams.
• A summary of our work on strategic
• A Pursue strategy which makes use
communications regarding counter-
of the new resources available to the
terrorism which we regard as integral
agencies and police to provide further
to our response to radicalisation.
capability in intelligence collection
and disruption; and which covers both
The scope of our strategy
domestic and overseas priorities.
Pursue also reflects new challenges,
Terrorism and insurgency
of which the management of terrorist
offenders is an important priority. The 7.12 Part One of this strategy we
strategy explains the human rights noted that some terrorist organisations
priorities we have and the challenges have become part of larger insurgency
we face. movements, which use armed conflict to
try to overthrow recognised governments.
• A completely revised strategy for
Prevent, based on our new analysis
7.13 Insurgencies have developed in Iraq
of the causes of radicalisation in
and in Afghanistan. In Iraq the insurgency
this country and overseas and on
which followed the fall of Saddam
contributions from a wide range
Hussein has been significantly reduced
of Departments, agencies and
in scale and scope and considerable
community organisations.
progress has been made in restoring
• A Protect strategy which extends security, stability and law and order. In
progress to date, with new work Afghanistan the insurgency continues.
on crowded places, alongside
existing work on our critical national 7.14 The insurgencies in Iraq and
infrastructure. This strategy is Afghanistan have each comprised
intended to address some of the different groups and organisations, with
technological challenges we face, different ideologies and aspirations,
highlighted in the Part One of which do not operate under a single
this document. unified command. Some groups emerged
to take part in the insurgency. Others
• A Prepare strategy which reflects
were active beforehand as domestic
the way we see the terrorist threat
or international terrorist groups and
developing and the risks that this will
continue to be actively engaged in
create for us; and which will focus on
terrorism elsewhere. Alongside its other
responding effectively to any terrorist
international activities Al Qa‘ida has
attack and mitigating its impact.
played a part in the insurgency in both
Iraq and Afghanistan; in Iraq it has been
significantly disrupted and has lost

Part 2 popular support and in Afghanistan it is
currently not a major force.
investment, increased capabilities, and
improved structures we have put in place
Section 7 since 2001 to counter terrorism are
7.15 The UK’s counter-insurgency work available to respond to threats as they
in support of the Governments in Iraq arise. However, this counter-terrorism
and Afghanistan has been led by the strategy is specifically addressed at
FCO and the MOD with our Armed Forces the recent resurgence in international
playing the major operational role. In each terrorism, which remains the greatest
case the UK has acted as part of a wider current threat both in this country and
international coalition. to our overseas interests.
7.16 Counter-insurgency work, 7.20 This strategy also does not

including military, political engagement, address the threat from domestic
development and reconstruction strands, extremism (such as the threat from
is closely related to and coordinated with animal rights extremists).
our counter-terrorism work. Although
not formally part of CONTEST, counter- Accountability
insurgency contributes to reducing
the threat to the UK and its interests 7.21 In March 2007 the Prime Minister
overseas from international terrorism. determined that the continuing threat
Like our counter-terrorism work counter- from terrorism required the Government
insurgency therefore makes a vital to enhance coordination and governance
contribution to our national security. of the CONTEST Strategy. Accordingly he
decided to:
7.17 In Afghanistan, denying the Taliban
• strengthen the role of the Home
territory deprives Al Qa‘ida of space
Secretary in facing the terrorist threat
in which to operate freely. Our work to
by giving the Home Secretary lead
promote security, good governance
responsibility for the Government’s
and the rule of law, are important in
strategy in relation to security threats
extending the writ of the Government
in the UK, including their overseas
of Afghanistan, removing safe havens
dimensions, and
used by Al Qa‘ida and enabling
long-term sustainable governance • strengthen the capability of the
and development. Home Office in support of this role by
establishing an Office for Security and
7.18 In Iraq, counter-insurgency work Counter-Terrorism (OSCT) in the Home
to encourage militant Iraqi groups to Office, supporting and reporting to the
renounce violence and participate in Home Secretary.
political processes has helped undermine
attempts by Al Qa‘ida and like-minded 7.22 As such, the Home Secretary is
organisations to obtain support for now the lead Minister for the CONTEST
terrorism by exploiting political and Strategy and the Director General of
religious discord. Training and mentoring OSCT is the Senior Responsible Owner
for the Iraqi Government as well as the for the strategy.
police and armed forces have also helped
build basic counter-terrorist capabilities. 7.23 The functions of OSCT are to:
• support the Home Secretary and
Irish-related terrorism and
other Ministers in the development,
domestic extremism
direction, implementation and
7.19 The attacks in March this year governance of the CONTEST Strategy
show the continued intent of dissident
• deliver directly those aspects of the
republicans in the face of the political
counter-terrorism strategy which fall to
progress that has been made in recent
the Home Office
years and which is supported by the
overwhelming majority of the people
of Northern Ireland. The additional

Part 2 • manage counter-terrorism related
crises through the Cabinet Office
Section 7 Briefing Rooms (COBR)
• facilitate the Home Secretary’s
statutory oversight of the Security
Service and exercise oversight, on
behalf of central Government, of
counter-terrorist operations in
the UK, and
• manage the 2012 Olympic
and Paralympic Security and
Safety Strategy.
7.24 OSCT has led work over the past

year to update this CONTEST Strategy,
in partnership with other parts of
Government. The Home Secretary,
supported by OSCT, meets weekly
with colleagues from a wide range of
Departments and agencies to consider
issues relating to the terrorist threat
to the UK.
7.25 In addition, a new Ministerial

Committee was subsequently established
on National Security, International
Relations and Development (NSID),
to consider issues relating to national
security, and the Government’s European,
and international development policies.
This Committee oversees CONTEST at
Ministerial level. It is chaired by the Prime
Minister, with the Home Secretary as
the lead Minister for counter-terrorism as
deputy chair. NSID involves the heads of
the security and intelligence agencies,
the police, and Armed Forces. Some
aspects of CONTEST are also dealt with
by subcommittees of NSID. NSID may
also receive external advice on counter-
terrorism, as on other national security
issues, from the National Security Forum,
an independent body of outside advisors
with expertise on many aspects of
national security.

Part 2 Pursue: stopping terrorist attacks
Section 8
Summary
The most immediate priority for the Government is

to stop terrorist attacks. The Pursue workstream of
CONTEST aims to reduce the terrorist threat to the
UK and UK interests overseas through the detection
and investigation of terrorist networks and the
disruption of their activities.
Terrorists operate in secret. Intelligence is vital to detect and disrupt their activities.
In the past five years there has been a rapid and significant increase in intelligence
resources at home and overseas, for the agencies and the police. These resources
have been organised into new structures which ensure unprecedented interagency
collaboration, recognised internationally as a model for successful joint working.
In accordance with the principles set out above, the Government has introduced
new legislation to respond to the evolving terrorist threat. New offences relate to
the preparation of terrorist acts, receiving training for terrorist purposes, attending
a place used for terrorist training and encouraging terrorism or disseminating
terrorist publications.
It is not always possible to prosecute people who intelligence indicates are engaged
in terrorist-related activity: for this reason the Government has developed a range of
alternative non-prosecution actions to protect the public. They include control orders
(which impose restrictions on the movements and contacts of an individual who has
been engaged in terrorist-related activity); the exclusion of foreign nationals from
entering the UK; revocation of citizenship; and deportation. These powers directly
affect only a very small number of individuals.

Part 2
Section 8
Powers are also available to proscribe groups involved in terrorism.
Recognising our dependence on international partners, many less experienced than

we are in counter-terrorism work, the Government has provided significant assistance
and capability building to over 20 countries in a range of counter-terrorism skills and
techniques. This includes advice on legal structures and human rights training.
In the next three years we have the following Pursue objectives:

• increase detection and investigation capability and capacity
• increase the effectiveness of our prosecution process, from evidential collection
to post-prison supervision
• develop more effective non-prosecution actions
• improve our capability to disrupt terrorist activities overseas
• strengthen the coherence between our counter-terrorism work and the UK’s
counter-insurgency and capacity building work in Afghanistan, Pakistan,
and elsewhere, and
• improve coordination and partnership between Pursue stakeholders.
The protection of human rights is a key principle underpinning our counter-terrorism

work at home and overseas. A challenge facing any government is to balance
measures intended to protect security and the right to life, with the impact on other
rights which we cherish. The Government has sought to find that balance at all times.
On a number of key issues the position of the Government will remain uncompromising:
the Government opposes the use of torture in all its forms; and the Government has
always and will continue to condemn the practice of ‘extraordinary rendition’. UK
agencies and police have not and will never engage in these practices.

Part 2 Pursue: stopping terrorist attacks
Section 8
Pursue: key achievements to the police and security and intelligence

agencies to deal with the terrorist threat.
8.01 Many of the successes of the Between 2001 and 2008, the size of
police and Security Service operations the Security Service doubled, GCHQ’s
to disrupt terrorist attacks in the UK Terrorist Team grew significantly and
are set out in the first part of this paper additional SIS resources have enhanced
(see Section Two). They have been front-line counter-terrorism operations
considerable and have enabled the overseas. Since its formation in June
Crown Prosecution Service (CPS) to 2003, the JTAC, the UK’s centre for the
repeatedly bring successful cases analysis and assessment of the level and
through the criminal justice system. nature of the threat from international
Between 2001/02 and 2007/08, terrorism, has grown by 60%. Since
almost 200 people were convicted 2006, the number of police personnel
of terrorist-related offences. dedicated to counter-terrorism work has
grown by over 70%.
8.02 In the earlier CONTEST Strategy
8.05 All prisons within the High Security
we set ourselves five key objectives for
Estate in England and Wales have
this workstream: improving intelligence
enhanced arrangements for collecting
about the domestic and overseas threat;
intelligence relating to prisoners
disrupting that threat here and overseas;
suspected, or convicted of terrorist-
and improving the counter-terrorism
related activities or extremism. Following
capacity of other states to better
an internal review the new UK Border
enable them to contain threats to
Agency (UKBA) is also enhancing its
their security and to support our
intelligence infrastructure.
counter-terrorism work.
Improved collaboration
Intelligence
8.06 The close collaboration between
8.03 Pursue is intelligence led. Terrorists
the UK’s counter-terrorism security,
conduct their activities in secret; law
intelligence and law enforcement
enforcement, security and intelligence
agencies is recognised internationally
agencies depend on covert intelligence
as a model for successful joint working.
to detect and disrupt terrorist activity.
Collaborative working is routine and
Intelligence investigations into threats
includes joint operations and joint
to the UK are led by the Security Service,
reporting, shared technical programmes
working closely with the police; together
and the exchange of staff.
they provide both a covert intelligence
and overt criminal investigation capability.
“The most important change in counter-
Given the international dimension to
terrorism in the UK in recent years has
the domestic threat, close collaboration
been the development of the relationship
between the Security Service, the
between the police and the Security
Secret Intelligence Service (SIS) and
Service… It is no exaggeration to say
the Government Communications
that joint working between the police and
Headquarters (GCHQ) is vital.
MI5 has become recognised as a beacon
of good practice.”
Enhancing intelligence resources
8.04 Since 2003, there has been a DAC Peter Clarke, (former) Head of
major increase in the resources available Metropolitan Police Counter-Terrorism
Command; public lecture 24 April 2007

Part 2 8.07 Collaboration between the Security
Service and the police has led to the
have an investigative role. At the force
level, Special Branches provide significant
Section 8 development of a new programme called contribution to counter-terrorism work
‘Rich Picture’, intended to provide a wider coordinated through this counter-terrorism
understanding of the context of terrorist network. Together, the CTC, the CTUs and
activity and radicalisation in this country. the CTIUs make up the Police Counter-
Under this programme information is Terrorism Network in England and Wales.
collected on issues related to violent
extremist activity in local communities. 8.11 This new counter-terrorism network
has enabled the police to:
8.08 Overseas, the UK has counter-
terrorism police officers (Counter- • b
etter engage in the full range of
Terrorism and Extremism Liaison Officers counter-terrorism policing activities
known as CTELOs) based within foreign including intelligence collection,
law enforcement agencies and UK investigation and intervention by
missions. Their role is to coordinate disruption or prosecution
bilateral and multilateral liaison, including
• implement policing contributions
on operational enquiries, requests
across all the key workstreams
for international legal assistance and
of CONTEST
exchange of police counter-terrorism
and extremism intelligence (where • combine in single units specialised
appropriate in consultation with the counter-terrorism skills and capacity
local SIS representative). with the local expertise of regional
police forces, and
National counter-terrorism structures
• improve the dialogue with other
8.09 There have been major structural regional partners, notably local
changes to the way in which the police authorities.
and the Security Service work together.
8.12 In Scotland, Association of Chief
8.10 The Counter-Terrorism Command Police Officers in Scotland (ACPOS) has
(CTC) (SO15), in the Metropolitan Police, established a CTIU which coordinates all
was created in 2006 from a merger of police counter-terrorism related duties.
two existing commands: Special Branch In Northern Ireland, the PSNI has a CTU
(SO12) and the Anti-Terrorist Branch capability within its Crime Operations
(SO13). The CTC coordinates regional Branch115. To deliver a comprehensive
(London), national, and international UK national approach, the new counter-
police work on counter-terrorism through terrorism resources we have created can
the Assistant Commissioner for Specialist be deployed wherever they are required
Operations and the Senior National and requested across the whole of the UK.
Coordinator Counter-Terrorism; this will
be enhanced by a new national ACPO 8.13 The Security Service now has offices
CT Coordination Centre being established across the UK, providing local intelligence
by the Association of Chief Police direction through daily contact with police
Officers (ACPO) during 2009. Police CTUs and CTIUs. By 2011, the Security
Counter-Terrorism Units (CTUs) have Service expects to have 25% of its staff
been established in Leeds, Manchester working outside its London headquarters.
and Birmingham. These are now fully
staffed, one year ahead of schedule and Coverage
will be reinforced by a fourth in Thames
8.14 These changes have led to a
Valley in 2009. The CTU network is
better and deeper understanding of
supported by smaller Counter-Terrorism
the terrorist threat, linkages between
Intelligence Units (CTIUs) based in the
terrorist networks within the UK and
East Midlands, Eastern region, South
overseas and of radicalisation. The
East (to be replaced by the Thames Valley
expansion of the police and security and
CTU), Wales and South West. These have
intelligence agencies has allowed many
similar functions to CTUs, but do not
more intelligence investigations to be run

Part 2 concurrently and has provided improved
facilities and capacity to manage large
and a further 87 on the basis of
unacceptable behaviour.
Section 8 scale, round-the-clock investigations.
8.20 On 28 October 2008, the Home
8.15 Overseas, the Government has Secretary announced changes in the
also increased resources available to exclusions policy. The key changes
improve intelligence coverage of those who included a presumption in favour of
threaten UK interests. The security and exclusion where an individual comes
intelligence agencies and the police have within the terms of the unacceptable
strengthened relationships with partner behaviours announced by the former
nations through intelligence exchange and Home Secretary in August 2005 and the
the delivery of training packages. This has disclosure of the details of those excluded
enabled better support to the overseas where it is in the public interest to do so.
aspects of investigation in the UK as well A further change will enable the Home
as an improved understanding of the global Secretary to exclude EEA nationals before
terrorist threat. they travel to the UK once EEA regulations
have been appropriately amended.
Disruption
Deprivation of citizenship
8.16 Between 2001 and 31 March
2008, over 1,450 terrorism-related 8.21 British citizenship can be revoked
arrests took place, of which one third led when the Home Secretary is satisfied
to a charge with three-quarters of these that deprivation is conducive to the public
for terrorism-related offences and just good but would not leave the person
over half of these resulted in a conviction. stateless or when it has been obtained
Around one in 10 of these arrests as a result of fraud, false representation
resulted in alternative action being taken, or concealment of material fact.
for example through immigration powers. Deprivation of citizenship on the grounds
The arrest to charge ratio is similar to that it is conducive to the public good
that for other criminal offences. might be considered appropriate in
cases involving national security
8.17 Between 2001/02 and 2007/08, (including espionage), war crimes;
almost 200 people were convicted of serious and organised crime; and
terrorist-related offences. unacceptable behaviours such as
glorification of terrorism.
Non-prosecution (civil) executive actions
8.22 People deprived of citizenship may
8.18 Where individuals are suspected
be removed, deported or excluded from
of engaging in terrorist-related activities
the UK as foreign nationals. Three people
in the UK but it is not possible to
have been served with notices depriving
prosecute or deport them, a range of non-
them of citizenship on conducive grounds
prosecution (civil) executive actions have
(of the three: two have been deprived;
been developed to protect the public.
one is currently appealing the decision
and the third has appealed against
Exclusions
the notice).
8.19 The Home Secretary has the power
to exclude foreign nationals (excepting Deportation
European Economic Area (EEA) nationals)
8.23 In the first part of this document
from entering the UK, where their
we explained that in this country, as in
presence is judged to be non conducive
the rest of Europe, terrorist activity
to the public good. This power can be
has often been conducted by foreign
used to exclude on grounds including
nationals who have come to live here.
national security, unacceptable behaviour,
The Government has always sought to
public order or serious criminality.
deport foreign nationals suspected of
Between July 2005 and the end of 2008,
being involved in terrorist-related activity,
153 people have been excluded from
or who have completed terrorist-related
the UK on national security grounds
prison sentences, back to their countries

Part 2 of origin using immigration powers
exercised by the UK Border Agency.
bilaterally with European partners to reach
a common understanding and acceptance
Section 8 of the applicability of deportation with
8.24 But many of the foreign nationals assurance-like mechanisms.
concerned come from states, which are
alleged to have abused human rights. 8.28 As at the end of 2008, eight
European case law (notably the Soering Algerians had been deported from
case116 from 1989) has established that this country and 12 cases of other
Article 3 of the ECHR prevents a state from nationalities were the subject of
deporting a foreign national to a country ongoing appeals in the UK courts.
where there are substantial grounds for
believing that there is a real risk the Control orders
person will be tortured or suffer inhuman
8.29 Control orders were introduced
or degrading treatment.
under the Prevention of Terrorism Act
2005 following the decision of the House
8.25 The European Court of Human
of Lords on 16 December 2004 that the
Rights (ECtHR) also held in the Chahal
provisions of the Anti-terrorism, Crime
case117 that this applies irrespective
and Security Act 2001 were incompatible
of the conduct of the persons to be
with Articles 5 and 14 of the ECHR.
returned. And in the case of Saadi the
court rejected an intervention by the UK 8.30 Control orders place one or
that it should be legitimate to balance more obligations on an individual in
the risk posed by an individual to the order to prevent, restrict or disrupt
community with the risk to the individual his or her involvement in terrorist-
on their return. In the Saadi case118 related activities, for example a ban on
the UK and other states had sought to some communications or restrictions
persuade the ECtHR to reverse their on movement. They are a means of
position but in 2008 the Court declined managing the risk posed by suspected
to do so. terrorists in this country who we can neither
prosecute (because the material about the
8.26 The substance of Article 3 individuals cannot be adduced as evidence
is reflected in other international or is not sufficient to enable a charge to be
instruments. Article 3 of the UN made) nor deport (for the reasons we have
Convention Against Torture prohibits the set out above).
removal of someone where there are
substantial grounds for believing they 8.31 Control orders are subject to regular
will face torture. The UN International and rigorous scrutiny, including mandatory
Covenant on Civil and Political Rights has review by the High Court. Cases take place
been interpreted to include a prohibition in open court as far as possible, with the
on return comparable to the ECHR. individual represented by a lawyer of their
choice. Special advocates are used to
8.27 It is against this background represent the interests of the individuals
that since 2004, the Government has in closed sessions (ie where it would be
negotiated Memoranda of Understanding against the public interest to disclose the
(MoUs) or similar arrangements to protect information on the basis of which
foreign nationals whom it wishes to deport the control order has been requested).
to countries where there are concerns The special advocate has access to all
on ECHR Article 3 grounds about safety relevant (including sensitive and
on return. Such arrangements have been classified) information.
agreed with Algeria, Ethiopia, Jordan,
Lebanon, and Libya. Work continues 8.32 The Prevention of Terrorism Act 2005
to expand this programme by agreeing also makes provision for derogating control
similar arrangements with a number of orders, which would allow for obligations
other countries. The House of Lords has that amount to a deprivation of liberty
upheld the use of assurances with Algeria under Article 5 of the ECHR. No derogation
and Jordan in a judgement in February from Article 5 has been made in relation
2009119. The Government is also engaging to control orders so only non-derogating

Part 2 control orders can be made. There are
no plans to derogate at present.
8.37 The HM Treasury’s asset-freezing
powers are exercised on the advice of the
Section 8 police and the intelligence and security
8.33 The concept of control orders is a agencies to address the risk to national
new one and the courts have examined security posed by those using funds for
it carefully. There have been a number terrorism-related purposes. (Asset freezing
of challenges on ECHR Article 5 and is described in more detail within ‘Financing
Article 6 grounds and in some cases the terror’ on page 74.)
Government has had to reduce the level
of control imposed on certain individuals. Building capacity overseas
The Law Lords’ Judgements of October
8.38 The Government conducts a range of
2007 confirmed that a curfew of up to and
counter-terrorism related capacity building
including 16 hours a day does not by itself
activities to enable third countries to better
constitute a deprivation of liberty contrary
address the terrorist threats they face;
to Article 5 and considered the control
and to enable them to collaborate more
order regime compatible with Article 6. The
effectively with UK law enforcement and
compatibility of control order proceedings
intelligence agencies on threats related to
with Article 6 is being reviewed again by the
the UK and UK interests. Capacity building
House of Lords.
is fundamental to our counter-terrorism
strategy. Assistance has been provided to
8.34 The 2005 Prevention of Terrorism
over 20 countries through the intelligence
Act established an Independent Reviewer
and security agencies, the MOD, the FCO
to provide an annual report on the control
and the police (see Section Fourteen, page
order system. The fourth report of the
139) and is very often coordinated with
Reviewer, Lord Carlile, was published on
international partners and with multilateral
4 February 2009. This review notes that
organisations, notably the United Nations
‘control orders remain a largely effective
and the European Union.
necessity for a small number of cases, in
the absence of a viable alternative’120. Lord
Legislation
Carlile noted that, having reviewed all the
relevant papers, he would have reached the 8.39 The expansion of the police,
same decision as the Secretary of State security and intelligence agencies has
in each case in which a control order was been accompanied where necessary, by
made during 2008. changes in legislation. The provisions of
the Terrorism Act 2000 consolidated earlier
8.35 On 10 December 2008, 15 control counter-terrorism legislation and have been
orders were in force. As at 10 March 2009, further supplemented by:
40 people have been subject to control
• the Anti-terrorism, Crime and Security
orders under the Terrorism Act 2005121.
Act 2001, which provided additional
powers to freeze and seize terrorist
Proscription and asset freezing
financial assets and, under Part
8.36 Under the Terrorism Act 2000, the 4, enabled the detention pending
Home Secretary has the power to proscribe deportation, of foreign nationals
groups involved in terrorism, and, since suspected of terrorist-related activity,
2006, also those that glorify terrorism. even where their removal was not
Membership of a proscribed organisation immediately possible
is unlawful, as is the provision of financial
• the Prevention of Terrorism Act 2005
and other kinds of support to such groups.
which repealed Part 4 of the 2001 Act
Currently (March 2009) 59 terrorist groups
and introduced control orders, and
are proscribed under this Act. This includes
14 groups connected to Northern Ireland. • the Terrorism Act 2006 which created
The proscription of all these groups new offences regarding the preparation
continues to be kept under review. of terrorist acts; receiving training
for terrorist purposes; and attending
a place used for terrorist training. It
also addressed the activities of those

Part 2 promoting violent extremism by making
it an offence to encourage terrorism or
bans and a requirement to inform
the police of changes in name and
Section 8 disseminate terrorist publications. The address, and
Act also extended the maximum period
• powers to direct financial institutions
for which people can be detained prior
to act against terrorist threats,
to charge to 28 days.
including by additional due diligence,
systematic reporting, and ceasing
8.40 This legislation is designed to
business altogether.
respond to the changing threat outlined
in Part One of this strategy and is used
Pre-charge detention
regularly. In 2006/07, almost 20 people
were charged with offences under the 8.42 The maximum period for which
Terrorism Act 2006. Eleven people have individuals arrested under the Terrorism
been held for over 14 days’ pre-charge Act 2000 can be held pre-charge is 28
detention, six of whom were held for days. Consideration was given during the
the maximum of 28 days – three of parliamentary passage of the 2008 Act
the six were subsequently charged and to extending the maximum limit to 42
three were released without charge. The days subject to additional safeguards.
remaining five were all charged. As at 10 The provisions were not proceeded with.
March 2009 (the latest period reported to The Government takes the view that with
Parliament), 40 people have been the increasing complexity, scale and
subject to control orders under the international nature of terrorist-related
Terrorism Act 2005. investigations and the need in some
circumstances, to make arrests at a very
8.41 The recent Counter-Terrorism Act early stage of the investigation, more
2008 (the 2008 Act) followed a further than 28 days may be required in future.
review of the legislative framework for An emergency Bill has therefore been
countering terrorism, drawing on the prepared and placed in the Library of
operational experience of the police Parliament in the event that it is needed.
and security and intelligence agencies.
It provides: 8.43 Some have argued that extending
the maximum period of pre-charge
• stronger terrorist asset-freezing powers
detention in the way proposed by
including enabling intercept material to
the Government raised human rights
be used in asset-freezing proceedings
implications for the individuals who might
• post-charge questioning of be affected. The Government believes its
terrorist suspects pre-charge detention proposals are fully
compatible with Article 5 of the ECHR.
• stronger police powers to remove
documents during searches
Pursue: The current approach
• additional police powers of entry
and search in relation to controlled 8.44 Intelligence collection and
individuals’ properties, powers to take disruption continue to be central to the
routinely and use DNA and fingerprints success of Pursue. The following specific
from people on control orders and a delivery objectives have been developed
new legal framework for the police for the next stage of CONTEST:
and intelligence agencies to retain
• increase covert detection and
and use DNA122
investigation capability and capacity
• tougher sentences for terrorists and
• improve the effectiveness of UK
new powers for the courts to order the
counter-terrorism related prosecutions
forfeiture of cash and property used for
from evidential collection to post-
terrorist purposes
prison supervision
• new controls on convicted terrorists
• develop more effective non-
who come to the end of their sentence,
prosecution actions
including the power to impose travel

Part 2 • improve our capability to disrupt
terrorist activities overseas
of extremist offenders post release
(further detail is provided at
Section 8 • strengthen the coherence between
Section Nine)
our counter-terrorist work and the • conducting further planning work
UK’s counter-insurgency and capacity to assess potential resource
building work in Afghanistan, Pakistan, requirements across the criminal
and elsewhere, and justice system to deal with terrorist
caseloads in future years, and
• improve coordination and partnerships
between Pursue stakeholders. • increasing the detention capacity for
terrorist suspects throughout the UK,
Pursue programmes including the capability to interact with
the judicial process.
Increasing covert detection and
investigation capability and capacity Develop more effective non-
prosecution action
8.45 Detecting and investigating
suspected terrorists continues to be 8.47 The police, security and intelligence
central to the success of Pursue. In order agencies, OCST, HM Treasury, UKBA and
to increase our capability, the security other Pursue stakeholders will continue
and intelligence agencies, the police and to develop effective and appropriate
other Pursue stakeholders will together: non-prosecution options to make the
UK as hostile an environment for
• exploit new data analysis and
terrorists as possible by:
information sharing and management
tools to provide additional capability • negotiating DWA agreements with
and cost effective use of manpower other countries where possible and
necessary: lobbying will continue
• improve technical intelligence
in Europe to seek a consensus on
collection and exploitation using
deportation strategy
improved systems and processes
• continuing to implement a stronger
• develop options for maintaining our
exclusions strategy, foreshadowed by
ability to use communications data
the Home Secretary’s announcement
(CD) and through CD to conduct legal
on 28 October 2008
intercept operations.
• completing ongoing work to finalise
Improving the effectiveness of the UK a new Terrorist Finance strategy,
prosecution process (from evidential addressing both Pursue and Prevent-
collection to post-prison supervision) related requirements and reflecting
opportunities provided by the United
8.46 The security and intelligence
Nations and European Union (see
agencies, the police, CPS, National
‘Financing terror’, page 74), and
Offender Management Service (NOMS),
Office for Criminal Justice Reform, OCST • continued work between OSCT,
and other Pursue stakeholders will Security Service and the police to
continue to improve the effectiveness enhance the effectiveness of
of the UK prosecution process in control orders.
managing terrorist-related cases by:
Improve our capability to disrupt terrorist
• enhancing our evidential collection
activities overseas
and case preparation processes to
support prosecutions 8.48 The security and intelligence
agencies, the police, the MOD, the
• continuing to enhance the capabilities
FCO and other Pursue stakeholders will
of prisons to manage terrorist
continue to enhance our capability to
offenders and strengthen processes
disrupt terrorist operations overseas by:
to ensure the effective management

Part 2 • delivering an enhanced capacity
building programme in partner
ensure an integrated approach to
dealing with radicalised individuals and
Section 8 countries to improve the ability of groups, and
other states to identify and disrupt
• share data exploitation techniques,
terrorist groups and to cooperate with
alongside processes for coordinating
UK counterparts, and
data acquisition.
• continuing our ongoing efforts to
identify and disrupt terrorist groups
that threaten the security of the UK
and interests overseas, making use
of the additional resources made
available by Government in this period.
Strengthen the coherence between our

counter-terrorism work and the UK’s
counter-insurgency and capacity building
work in Afghanistan, Pakistan, and
elsewhere
agencies, the police, the MOD and
FCO will continue to ensure coordination
and coherence between programmes
under CONTEST and the UK’s counter-
insurgency and capacity building
work overseas.
Improving coordination and partnership

between Pursue stakeholders
8.50 Pursue stakeholders will:
• build collaboration in the UK, notably
around the Police Counter-Terrorism
Network and through a new national
ACPO CT Coordination Centre (to be
established incrementally from
April 2009)
• introduce Service Level Agreements
or similar protocols between CTUs
and the forces within their regions
to ensure consistency in information
sharing, tasking/coordination and
operational collaboration
• extend the joint Security Service/
police Rich Picture programme across
policing and, where appropriate,
external partners
• improve the intelligence infrastructure
across the prison estate to aid the
management of prisoners suspected,
or convicted of terrorist-related
offences
• ensure continued coordination
between the Pursue and Prevent
workstreams of this strategy, to

urveillance, interception of communications,
S
safeguards and oversight
Covert surveillance own business reasons. Access to it by

public authorities is also governed by RIPA.
The detection, investigation and the
disruption of almost every terrorist plot in CD is vital to the fight against terrorism
this country will involve the use of covert and serious crime in this and other
surveillance123. Hundreds of lives have countries. It can enable the contacts of
been saved as a result. But surveillance the subject of a police investigation to
and interception intrude on the right to be quickly and reliably established and
privacy (Article 8 of ECHR) and need to be analysed. In 2007, the total number of
proportionate to the threat and necessary requests for this data from the police,
to the management of it. Independent security and intelligence services
scrutiny of the authorisation process and local authorities, for all purposes
is essential. (terrorism and other crime), was 519,260.
A single terrorist or criminal target with
Interception of communications a number of mobile phones can be the
subject of a large number of requests
The Regulation of Investigatory Powers Act for CD. The number of people who are
2000 (RIPA) sets out legal arrangements the subject of investigation is therefore
for the interception of communications. considerably less than 519,260.
Only the security and intelligence agencies
and the law enforcement agencies Local authorities may only apply to obtain
may apply for authorisation to intercept basic CD (eg the subscriber to a mobile
communications, and each interception phone and the numbers that a phone has
application can only be authorised by a called) when investigating crimes such as
warrant signed by a Secretary of State. benefit fraud and illegal trading. In 2007,
(Local authorities are not permitted to 1,707 requests were from 154 local
intercept communications.) The total authorities, (ie on average one request
number of warrants issued by the Home per month from each council).
Secretary each year for all purposes
is published in the annual report of The security and intelligence agencies
the Interception of Communications and the law enforcement agencies can
Commissioner (see Safeguards and obtain more detailed data that can,
oversight below). Between 1 January for example, identify the location of a
2007 and 31 December 2007, a total mobile telephone.
of 2,026 warrants were issued (Home
Secretary 1,881, Scottish Executive 145), Safeguards and oversight
of which 957 were still in force at the end
of the year. Because interception and covert
surveillance intrude on privacy it is vital
Communications Data that there should be strict rules governing
their use and independent oversight of
Communications Data (CD) is the how those rules are applied. Equally the
information about a particular retention and processing of personal
communication, for example the number data about individuals, both to investigate
which has been dialled, from where and individual terrorist suspects and to
for how long the communication lasted. protect the general public, can give rise to
CD is currently generated and stored by concerns about the potential for misuse
communications service providers for their and abuse of data. The Government is

committed to ensuring that personal issues of particular public concern, and
data is retained and processed only wherever possible, these reports are
when necessary and proportionate to also published.
do so and in compliance with the Data
Protection Act 1998. Various independent Future developments
Commissioners provide transparent
oversight of the security and the Covert surveillance techniques need
processing of personal data, including to adapt to changes in technology and
CD, identity data and passenger data. the threats we face. But these changes
need to be lawful and a reasonable and
RIPA sets out the tests that public proportionate response to the threat,
authorities must meet to ensure that and as elsewhere in our counter-terrorist
any action they undertake is lawful. strategy will continue to reflect a proper
It establishes oversight bodies, balance between the security of all and
independent of Government and headed the liberty and privacy of the individual.
by senior judges (Commissioners), There are two issues for the future of
responsible for inspecting how public particular importance.
authorities have exercised their powers
under RIPA and to report their findings. Intercept Modernisation Programme
These reports are published. (IMP)
The ways in which people are
The independent Commissioners
communicating with one another
under RIPA are: The Interception of
are changing rapidly, with greater use
Communications Commissioner who
of internet-based communications,
oversees all use of interception and CD;
including email, instant messaging,
the Office of Surveillance Commissioners
social networking sites and VOIP (Voice
who oversee the use of surveillance; and
Over Internet Protocol). This trend will
the Intelligence Services Commissioner,
continue as the UK’s major providers
who oversees the activities of the
of communications services move
security and intelligence agencies. An
towards more internet-based methods
independent Investigative Powers Tribunal
of communication, with Internet Protocol
was also established under the Act. Made
networks being rolled out across
up of senior legal and judicial figures,
the country.
its purpose is to investigate complaints
about the conduct of public authorities
These changes pose a significant
in relation to individuals, their property
challenge to our ability to investigate all
or communications. The Government
forms of crime, including terrorism; if we
believes that this tribunal meets the
take no action, our capability to obtain
requirements of Article 13 of the ECHR.
CD and intercept communications will
fall. The ability of law enforcement and
A committee of Parliamentarians, the
security and intelligence agencies to
Intelligence and Security Committee
protect national security and to prevent
(ISC), oversees the policy, finance and
crime would be severely affected.
administration of the security and
intelligence agencies. The ISC reports
The IMP (a cross-Government programme
annually on its findings and each report
led by the Home Office) has been set up
is published and debated in Parliament.
to maintain our ability to obtain CD and
The ISC has also from time to time
conduct interception and to ensure that
conducted enquiries into intelligence

law enforcement, security and intelligence compliant legal model that also
agencies will still have access to the protects operational sensitivities and
same vital information that they use today working methods.
in order to prevent terrorism and to tackle
all forms of crime. There are connections between the
IMP and the development of intercept
On 15 October 2008, the Home Secretary as evidence. Unless we maintain our
announced that the Government will interception capability as technology
be consulting on proposals intended changes, there can be no possibility of its
to maintain our ability to obtain CD to use in evidence. Equally important is the
protect the public. The consultation will maintenance of the capability to collect
begin in spring 2009. CD in which IMP will play a vital part.
Whatever option is selected for collecting
Intercept as evidence and accessing CD, it would need to take
account of any future requirements of
At present while CD can be used as
the courts to be satisfied of its
evidence in court proceedings in the
evidential integrity.
UK, the intercepted content cannot be.
The police and security and intelligence
agencies use interception to inform and
guide investigations, enabling them to
obtain evidence by other means while
protecting the way in which intercept
is conducted in this country. The
Government’s position has consistently
been that it will only change the law
to permit intercept as evidence: if the
necessary safeguards can be put in
place to protect sensitive techniques,
capabilities, and relationships; the
existing close cooperation between law
enforcement and security and intelligence
agencies can be maintained; and the
potential benefits outweigh the risks.
In July 2007, the Government appointed

a committee of the Privy Council,
chaired by Sir John Chilcot to review the
use of intercept as evidence124. They
reported back on 30 January 2008 and
recommended that it should be possible
to find a way of using some intercept
material as evidence, but that certain
key conditions must first be met.
In his Statement to the House on

6 February 2008, the Prime Minister
accepted this recommendation and said
that the Government would ‘proceed to
develop a detailed implementation plan
under which material might be made
available for use in criminal cases in
England and Wales’. The Government
has established an Implementation Team
based in the OSCT in the Home Office
to lead work across the interception
community on developing an ECHR

Financing terror
Terrorists need finance. The sums Countering terrorist finance

required for an operation vary: the
attacks in New York and Washington on “The financial challenge to crime and
11 September 2001 are estimated to terrorism125” launched jointly by Home
have cost US$500,000; the 7/7 London Office, HM Treasury, the FCO and the
attacks and the Madrid train bombings Serious Organised Crime Agency (SOCA)
cost less (c. £8,000 and US$10,000 in February 2007, set out for the first time
respectively); and an improvised explosive how the public and private sector would
device in Iraq costs about US$100. come together to deter terrorists from
using the financial system, detect them
Terrorist organisations also need money when they did, and use financial tools
to sustain their networks, to provide to disrupt them. Our aim is to deprive
financial support to terrorists and their terrorists and violent extremists of
families, including families of terrorists the financial resources and systems
who have been killed or imprisoned. The needed for terrorist-related activity,
sums required here may be much greater. including radicalisation.
The capability and the plans of terrorist
organisations, including Al Qa‘ida, have Action against terrorist finance includes
been hampered by a lack of funding. safeguards to prevent terrorists using
common methods to raise funds, or
Terrorist organisations raise funds using the financial system to move
through crime (from credit card fraud money. Financial intelligence and financial
through extortion to drugs trafficking and investigation tools are used to support
kidnapping), from donations (often from all counter-terrorist investigations; and
a few wealthy individual donors) and by asset freezing can be used to disrupt the
the diversion of funds raised for other activity of terrorists and their supporters.
purposes (often by and for charities).
Because of the risk of detection, funds The financial sector plays a significant
are moved less through the normal role in preventing terrorist abuse, by
banking system, terrorists preferring carrying out ‘know your customer’ checks
to use cash couriers or the informal and by identifying suspicious customers
(‘hawala’) banking sector. For Al Qa‘ida or activity. In 2007, the Government
the flow of money is mainly from the implemented the European Union (EU)
Gulf to the core organisation in the tribal Third Money Laundering Directive which
areas of Pakistan. Funding has also tightened controls on the regulated
come from Europe. financial sectors. HM Revenue and
Custom’s (HMRC) mandatory registration
Countering terrorist finance means not of money service businesses introduced
only disrupting terrorist cells but also a ‘fit and proper’ test to ensure that
the work of their support and facilitation owners and persons who direct the
networks, in particular those who businesses cannot abuse those
radicalise people to support terrorism and businesses for terrorist financing. These
violent extremism. The infrastructure for sectors are obliged by law to provide the
radicalisation in the UK and overseas can SOCA with Suspicious Activity Reports on
draw on funding from sources (eg donors any financial activity they suspect may be
and charities in and outside the UK) not related to terrorism. In 2006/07
otherwise involved in terrorism.

SOCA referred 1,088 such reports to the Future developments
National Terrorist Financial Investigation
Unit (NTFIU) of the Metropolitan Police Our strategy for tackling terrorist finance
for further investigation. The Charity will focus on:
Commission plays an important role
• preventing money being raised and
in preventing the abuse of charitable
used for attack planning in the UK and
organisations to raise or move funds
against UK interests
for terrorists.
• disrupting the funding of Al Qa‘ida
The Terrorism Act 2000 created specific and its affiliates and associates by
terrorist finance offences and there targeting donors, facilitators and the
have been five convictions since 2006 terrorist financial infrastructure, and
including the radical preacher Omar
• developing our understanding of the
Brooks, who was convicted of raising
funding of radicalisation and disrupting
money to support terrorism in Iraq.
the movement of funds into this
country for that purpose.
Financial tools are used to disrupt
terrorists and their supporters. In October
2007, HM Treasury set up a dedicated
Asset Freezing Unit to increase the
expertise and operational focus that the
Government is able to bring to bear in
this area, enabling the UK to be more
effective and proactive in freezing assets
of suspected terrorists and facilitators.
At the end of September 2008, a total of
252 separate accounts used by suspected
terrorists and containing over £670,000
were frozen in the UK.
To combat the international financing

of terrorism, we work closely with
other governments and international
organisations such as the Financial
Action Task Force, to develop and enforce
international standards and, to ensure all
countries have robust systems in place
for countering the financing of terrorism.
Both the EU and the UN operate asset-

freezing regimes. The UN maintains a list
of individuals and entities connected to Al
Qa‘ida and the Taliban under UN Security
Council Resolution (UNSCR) 1267; those
listed are subject to a worldwide asset
freeze, travel ban and arms embargo.
The UN also obliges member states to
freeze the assets of other suspected
terrorists under UNSCR 1373. The EU
also designates individuals and entities
who commit or facilitate acts of terrorism.

The treatment of detainees
Section Seven made clear that the The UK is party to the key international
protection of human rights is a key agreements which prohibit the torture
principle underpinning our counter- of detainees, including: the Geneva
terrorism work at home and overseas. Conventions, which cover situations of
This is particularly relevant when military occupation and armed conflict;
questions arise about the treatment the International Covenant on Civil and
of detainees and these issues are Political Rights; and the UN Convention
considered further here. against Torture and Other Cruel, Inhuman
or Degrading Treatment or Punishment.
Intelligence from detainees held abroad The ECHR, Article 3 of which prohibits
who have been involved in terrorist- torture or inhuman or degrading treatment
related activity can be vital in stopping or punishment, has been incorporated
terrorist attacks. Detainee reporting has into domestic law.
helped save lives here in the UK and
protected our interests overseas. But Intelligence from the security and
the way in which detainees are held in intelligence services of other states
countries overseas varies significantly is vital to our own security and has
from the procedures to which we are repeatedly enabled us to disrupt attacks
accustomed in this country. planned against the UK or UK interests.
In most cases the source or sources of
Our intelligence and security services this intelligence will not be disclosed to
work to make Britain more secure, often the UK. If it is clear that the intelligence
in circumstances overseas that they has come from a detainee the service
do not control. This creates significant providing it will rarely volunteer the
challenges for our counter-terrorist work circumstances in which the detainee
and has led to intense scrutiny in recent is being held. If it is established that
months of the involvement of our security material has been obtained from a
services and armed forces in detention detainee by torture, it would not be
activities. These organisations operate admissible in criminal or civil legal
to strict guidance, including about their proceedings in the UK as part of the case
duties and responsibilities regarding against an individual, regardless of where
human rights. In March 2009, the Prime it was obtained. But as the House of
Minister announced a number of steps to Lords recognised in judgements in 2005
provide reassurance that everything has any intelligence which has been received
been done to ensure that these practices may still be used to investigate and to
are in line with UK and international law, stop terrorist attacks127.
including – for the first time – publishing
guidance to personnel involved in matters Our security and intelligence agencies
of detention126. may actively seek intelligence from
another service which is detaining
The UK’s opposition to torture an individual or interview a detainee
held overseas directly if that person is
The Government opposes the use of believed to have information important to
torture in all its forms and works hard the security of the UK or its interests. In
with international partners to stop the either case, the security and intelligence
practice of torture and of cruel, inhuman agencies will first try to establish the
or degrading treatment. circumstances in which the person
concerned is being held. Officials
interviewing detainees are given guidance

about their duties and responsibilities to assist another State in a rendition
regarding human rights. operation, and our assistance would
be lawful, we would decide whether or
The Prime Minister announced this month not to assist taking into account all the
that, for the first time, the Government circumstances. We would not assist if
will publish guidance to intelligence doing so put us in breach of UK law or
officers and service personnel about the our international obligations.
standards that we apply during detention
and interviewing of detainees overseas In recent years public debate has focused
once it has been consolidated and on the term ‘extraordinary rendition’. This
reviewed by the Intelligence and Security is generally understood to refer to the
Committee (ISC). The Intelligence Services extra-judicial transfer of persons between
Commissioner, Sir Peter Gibson, will then jurisdictions specifically for the purposes
monitor compliance with the guidance of detention and interrogation outside
and report to the Prime Minister annually. the normal legal system, giving rise to an
This will ensure that the public know what increased risk of torture or cruel, inhuman
those involved in interviewing detainees or degrading treatment. UK Government
can and cannot do, putting beyond doubt policy on such “extraordinary rendition”
the terms under which our agencies and is clear: we unreservedly condemn any
service personnel operate. rendition to torture. We have not approved
and will not approve a policy of facilitating
In order to ensure that our systems the transfer of individuals through the
are robust and to be certain that any UK to places where there are substantial
lessons have been understood, the grounds to believe they would face a real
Prime Minister has also asked the ISC risk of torture.
to consider any new developments and
relevant information since its 2005 Report In 2007, the ISC published a report on
on Detention128 and its 2007 Report on the issue of rendition130. The Committee
Rendition129, building on the follow-up work has subsequently indicated in its 2007-
they have already undertaken. 2008 Annual Report131, that it is revisiting
some of the matters in that earlier report,
Wherever allegations of wrongdoing as a result of a number of developments,
are made, they are taken seriously. including in relation to rendition flights
Some detainees have already put their through Diego Garcia.
allegations before the civil courts, where
they can and should be tested. If any On 21 February 2008, the Foreign
cases of potential criminal wrongdoing Secretary reported to the House of
come to light, the Government will refer Commons that the US Government had
them to the Attorney General to consider informed the UK of two occasions in 2002
whether there is a basis for inviting the when a flight with a detainee on board
police to conduct a criminal investigation. refuelled on the UK Overseas Territory
Any decisions on prosecutions will be of Diego Garcia132. This was contrary to
reached only after such an investigation. earlier US assurances. On 3 July 2008,
the Foreign Secretary informed the House
Rendition that the US Government had confirmed
that there had been no other instances
There is no commonly accepted definition in which US intelligence flights landed in
of the terms ‘rendition’ and ‘extraordinary the UK, our Overseas Territories or the
rendition’ other than the transfer of Crown Dependencies, with a detainee on
an individual between jurisdictions board since 11 September 2001133. And
outside normal legal processes such as that the US Government had underlined
extradition, deportation, removal its firm understanding that there will be
or exclusion. no rendition through the UK, our Overseas
Territories and Crown Dependencies or
The UK opposes any deprivation of liberty airspace without first receiving express
that places a detained person outside the permission from the UK Government.
protection of the law. If we were asked

Part 2 Pursue: future challenges Pursue and Prevent. This has three
main aspects: we have to manage the
Section 8 • Balancing measures intended to protect negative impact that Pursue activity can
security and the right to life with the have on communities and therefore
impact they may have on the other on our Prevent agenda; but Pursue
rights that we cherish is a fundamental operations also need to support our
challenge facing any government. We Prevent objectives (eg ensuring that
will continue to consider only those disruptive action is taken against
measures which we judge to be both those who engage in radicalisation);
proportionate and necessary to counter and Prevent interventions need to be
the threats we face; we will keep under considered for Pursue type problems
the closest scrutiny our assessment of (ie we need to be able to provide
those threats and ensure they remain support for individuals who are getting
well founded. drawn into criminal activity). The way we
will address these challenges is set out
• The existence and number of Al Qa‘ida
in more detail in the Prevent Section
affiliates and inspired groups, the
(Section Nine).
devolved nature of the planning and
operations and the tendency to form • The severe consequences of a
transnational networks demands a much successful terrorist attack mean that on
broader intelligence base than was occasion the police will need to intervene
required to understand previous at an early stage in the investigation of
terrorist networks. a terrorist operation to safeguard the
public. There may be some false calls.
• Gathering intelligence and disrupting
And the need for early intervention,
terrorists overseas will remain a vital
based very often on intelligence only,
way of pre-empting attacks on the UK
may result in some people being held
itself as well as on UK interests. This
in detention while the investigation
work will depend on close international
continues, evidence is collected and
cooperation and coordination and will
charges are considered.
also require the UK and other countries
to continue to build the capacity and • Public support for our work under the
capability of some states to counter Pursue workstream is vital. But we
the terrorist threats they face. recognise that this depends on good
communications. Unless we clearly
• Intelligence collection and disrupting
explain the nature of the threats we
terrorist activities will pose serious
face some of the measures we take
operational and other challenges as
may appear to be neither necessary
terrorist networks move into states or
nor proportionate. But we will have to
areas of states which are failing or
balance the need to share information
fragile and where the rule of law is
with the benefit which terrorists may
neither imposed nor observed and
receive by acquiring it.
where central Government may have
little or no influence.
• In delivering CONTEST the Government
must ensure that activities across the
four main workstreams of this strategy
are coherent and complementary. The
most challenging area in this respect
is managing the connection between

Part 2 revent: stopping people becoming terrorists
P
Section 9 or supporting violent extremism
Summary
To reduce the risk from terrorism – our overall aim

– we need not only to stop attacks but also to stop
people becoming terrorists or supporting violent
extremism. The Government introduced its revised
Prevent strategy in October 2007. The strategy is
based on a better understanding of the causes of
radicalisation, to each of which it aims to provide
a coherent response.
In the next three years the workstream has five main objectives:
• to challenge the ideology behind violent extremism and support mainstream voices
• disrupt those who promote violent extremism and support the places where
they operate
• support individuals who are vulnerable to recruitment, or have already been
recruited by violent extremists
• increase the resilience of communities to violent extremism, and
• to address the grievances which ideologues are exploiting.
The two supporting objectives are: to develop supporting intelligence, analysis,

and information; and to improve our strategic communications.
The Government has allocated new funding to a wide range of agencies and
Departments to develop programmes under these objectives. The cost of the key
deliverables in 2008/09 alone is over £140 million. These programmes include:
• The Preventing Violent Extremism programme: a community-led approach to
tackling violent extremism led by the Department for Communities and Local
Government in partnership with local authorities and a range of statutory and
voluntary organisations.
• The police Prevent Strategy and Delivery Plan with 300 new ring-fenced staff being
recruited in 24 forces to work alongside the national and regional counter-terrorism
policing structure and with neighbourhood policing teams.
• The Channel programme: a community-based initiative which utilises existing
partnership working between the police, local authority and the local community
to identify those at risk from violent extremism and provide help to them, primarily
through community-based interventions. There are currently 11 Channel sites;
another 15 are planned.

Part 2
Section 9
The Prevent programme depends upon a unique and ground-breaking range of

local, national and international partners. lt needs the support of communities
and community organisations in this country to protect vulnerable people from
radicalisation, and recruitment to terrorism. Because the greatest threat at present is
from terrorists who claim to act in the name of Islam, much Prevent activity takes place
in and with Muslim communities. But the principles of our Prevent work apply equally to
other communities who may be the focus of attention from violent extremist groups.
The role of law enforcement agencies is as important in Prevent as it is in Pursue.

Local government and central Departments have a vital role to play. And international
partnerships are essential: people in this country can be radicalised as well as trained
overseas and messages from other countries can significantly impact on opinions here.
As part of this strategy we will take action against those who defend terrorism
and violent extremism. We will also continue to challenge views which fall short of
supporting violence and are within the law, but which reject and undermine our shared
values and jeopardise community cohesion. Some of these views can create a climate
in which people may be drawn into violent activity. We have no intention of outlawing
these views or criminalising those who hold them.
The internet presents significant challenges for CONTEST in general and Prevent in
particular. The Government has taken action here to explore ways of addressing the
widespread dissemination of terrorist related material. This material is usually hosted
outside this country. Further action is being taken with counterparts overseas and with
multilateral organisations, including the European Union and the United Nations.

Part 2 revent: stopping people becoming terrorists
P
Section 9 or supporting violent extremism
Prevent: key achievements others; addressing political and economic

problems leading to radicalisation; and
9.01 Radicalisation is one of the four improving our understanding of Prevent to
strategic drivers for terrorism identified better inform future programmes.
in the first part of this strategy: in the
context of this strategy radicalisation 9.06 The strategy for Prevent built on
refers to the process by which people and led to a number of important and
come to support terrorism and violent lasting initiatives, including:
extremism and, in some cases, then to
• The publication by the Department for
join terrorist groups.
Communities and Local Government
(CLG) in April 2007 of Preventing
9.02 The aim of the Prevent workstream
Violent Extremism: Winning Hearts and
is to stop radicalisation, reducing support
Minds, which set out a community-led
for terrorism and discouraging people
approach to tackling violent extremism.
from becoming terrorists.
CLG launched a £6 million Preventing
Violent Extremism Pathfinder Fund to
9.03 In 2003, this part of CONTEST
support priority135 local authorities and
was the least developed. The intelligence
established a range of programmes
and analytic picture was incomplete:
designed to build civic leadership and
resources in most countries, including the
strengthen the role of faith leaders
UK, were devoted to investigative work,
and institutions.
in order to protect the immediate threat
to life, rather than to understanding the • The Radical Middle Way ‘roadshows’
factors driving radicalisation. Following of Muslim scholars, sponsored by the
the disturbances in northern cities in FCO and CLG, intended to challenge
2001, engagement with Muslim and the global terrorist ideology.
other faith communities was largely
• Work to promote the UK as a centre of
focused on improving social cohesion
excellence for Islamic studies outside
and interfaith dialogue using community-
the Muslim world, and the designation
based measures, such as the Faith
in 2007 of Islamic studies as a
Communities Capacity Building Fund.
strategically important subject.
9.04 After the London bombings in • Work to strengthen standards in
2005 the Home Office led a consultation mosques including working with the
exercise with Muslim communities under independent Mosques and Imams
the title ‘Preventing Extremism Together’, National Advisory Board (MINAB),
to develop practical recommendations for an alliance of four Muslim groups,
tackling violent extremism. Many British established to set standards and
Muslims took part, and the working establish a system of self-regulation
groups published their report in for mosques.
November 2005134.
• The adoption of preventing extremism
as a strategic theme in the National
9.05 The CONTEST Strategy, published
Community Safety Plan136.
in 2006, incorporated recommendations
from this report and identified four • Guidance to universities about
areas of work: developing campaigns extremism on campus.
to address the motivation for violence;
creating an environment hostile to those
who glorify terrorism and radicalise

Part 2 • A programme of work to improve
the capacity of NOMS and partner
of a combination of factors, summarised
in Section Five of this document:
Section 9 agencies to manage the risks posed
• A persuasive ideology which draws
by violent extremist offenders both
upon an interpretation of religion and
in prison and on release into the
a view of history and contemporary
community, including strengthening
politics to legitimise terrorism.
intelligence gathering and sharing,
increasing capability and resilience, • Ideologues and social networks who
providing training and support to promote that ideology and help those
operational staff, and developing prepared to support it; and who
appropriate offender management often operate in open institutions in
interventions. This work contributes to this country, making extensive and
objectives across the entire strategy. effective use of new media.
• Individuals who are vulnerable to
9.07 In 2007, in collaboration with
violent extremist messaging for a
other Government Departments and the
range of personal reasons, variously
Devolved Administrations, OSCT revised
relating to issues of identity, faith,
the earlier Prevent strategy. Using the
frustrated ambition, migration and
intelligence and open source material,
displacement.
which had by then become available
and working closely with international • An absence of resilience (and in
counterparts and local and community some cases tacit support) in
partners a new strategy was developed vulnerable communities.
based on a more comprehensive
• Real or perceived grievances, some
understanding of the factors driving
international and some local, including
radicalisation in the UK and overseas.
in particular: a perception that UK
foreign policy in the Muslim world
9.08 The revised Prevent strategy was
(notably military operations in Iraq
approved in principle at the Ministerial
and Afghanistan) is hostile to Islam;
Committee on National Security,
the experience of wider conflict in the
International Relations and Development
Muslim world and conflict involving
(Tackling Extremism) in October 2007 and
Muslims (often attributed either to
is described in more detail below. OSCT
western intervention or to western
subsequently worked with a wide range
indifference); and a range of domestic
of Departments to develop a set of over
issues, including racism, inequalities
50 fully funded programmes to deliver
and the experience of criminality
the objectives.
and migration.
9.09 The revised Prevent strategy is
9.11 The new Prevent strategy has been
a significant development of the old:
developed to address each of these
it includes more Departments; has more
causes and seeks to:
thoroughly integrated the significant
contribution of policing; aims to link local • challenge the ideology behind
and international delivery; is based on violent extremism and support
better metrics; and has a significantly mainstream voices
larger budget137, the cost of the key
• disrupt those who promote violent
deliverables in the Prevent Delivery
extremism and support the places
Plan for 2008/09 alone totals over
where they operate
£140 million.
• support individuals who are vulnerable
Prevent: The current approach to recruitment, or have already been
recruited by violent extremists
Key principles
• increase the resilience of communities
9.10 The revised Prevent strategy is to violent extremism, and
based on an assessment that support for
• address the grievances which
violent extremism in the UK is the result
ideologues are exploiting.

Part 2 These five objectives are supported by: people have more confidence to build
relationships with one another and
• developing intelligence, analysis and
Section 9 information, and
increase community cohesion.
• Community Empowerment means
• improving our strategic
giving communities a real say over
communications.
the decisions and services which
affect them. Citizens need to know
The role of communities, local
that public bodies are committed
authorities and statutory partners
to understanding their views and
9.12 The Government and the Devolved concerns. This is particularly the case
Administrations cannot deliver the Prevent in times of uncertainty. Empowerment
agenda on its own. This programme initiatives connect people to the
depends on collaborative work alongside decision-making of democratic
the vast majority of people across all institutions. The Empowerment White
communities in this country who reject Paper: Communities in control: real
violent extremism and are determined people, real power 138, launched by
to challenge it. Strong and empowered CLG on 9 July 2008, set out the
communities are better equipped Government approach to passing
to effectively reject the ideology of power to local communities and giving
violent extremism, isolate apologists real control and influence to more
for terrorism and provide support to people. It promotes a sense of how
vulnerable institutions and individuals. individuals are able to influence the
CLG has a central role in ensuring that democratic process and raise issues
communities are at the centre of our through democratic routes. This
response to violent extremism, that supports Prevent by giving people
individuals and groups of all faiths and the confidence and opportunities
all diaspora communities understand the to air their grievances through
Government’s strategy and that they are legitimate channels.
given support to take a stand against
• Race equality means building an
violent extremism.
equally free and fair society for all
people regardless of their racial or
9.13 Prevent is closely coordinated
ethnic background. The Government’s
with work in three other policy areas:
approach is based on: a strong
community cohesion; community
legislative framework to tackle
empowerment; and race equality.
discrimination and promote equality
• Building community cohesion is between different racial groups;
about creating strong and positive closing the gaps by integrating
relationships between people of measures in Departmental public
different backgrounds, including those service agreements and programmes;
from different ethnic and cultural and targeted work to address
backgrounds and from different faith particular areas of inequality. This is
communities. By focusing on what important in its own right, as part of
people have in common as well as our vision for a free and fair society,
on the value of diversity, community but can also help Prevent efforts to
cohesion can foster a shared vision tackle grievances arising from racism
of the future and sense of belonging. and inequalities.
Experience has shown that violent
extremism can emerge from even 9.14 The greatest terrorist threat
the most cohesive communities; but we currently face is from terrorists who
extremist messages are less likely claim to act in the name of Islam and who
to find support and are more easily seek to recruit people to their cause from
isolated in a cohesive environment. Muslim communities around the world. In
A community which isolates extremism the recent past terrorist groups operating
of all forms is likely to be one where in this country have sought

Part 2 members from other communities and
interest groups here and some domestic
assistance to them. And policing can
provide essential support to communities
Section 9 violent extremist organisations (not all and community organisations.
within the scope of this strategy – see
page 57) still do so. At this stage much The international perspective
Prevent activity takes place with Muslim
9.17 Prevent work in this country has
communities. But the principles which
to be part of an international strategy.
are the basis for this work can apply to
The sources and, to a large extent,
different contexts too.
the inspiration for much of the terrorist
ideology are overseas. Terrorists from
9.15 The Prevent programme depends
or resident in the UK have at times been
not only on communities but on local
radicalised as well as trained overseas
authorities, education, health, cultural
and some communities here are closely
and social services, UKBA and those
connected to their countries of origin.
responsible for offender management.
The FCO will lead international Prevent
Coordination across these agencies,
work with other countries, notably
departments and communities (both
Pakistan, Bangladesh, Saudi Arabia,
through statutory and third sector
Egypt and the US. The Government
bodies) is vital and most of the local
will also engage more with diaspora
areas receiving Prevent funding139
communities in the UK, to better
have already established appointed
understand the links with their countries
Prevent partnerships. Many of these
of origin, and how they can better enable
organisations are new to CONTEST and to
us to tackle the shared threat.
counter-terrorism and in June 2008 the
Government published the Prevent ‘Guide
9.18 The first part of this strategy argued
for Local Partners’140 intended to provide
that conflict and failed states have both
further background; this was followed
played a key role in the evolution of the
in July 2008 by Preventing Violent
international terrorist threat. Conflict
Extremism: Next Steps for Communities
prevention, though an important foreign
which updated CLG’s April 2007 action
policy objective in its own right and not
plan and outlined future priorities, based
formally part of CONTEST, is therefore
around the themes of community, civic
critical to our work to counter-terrorism
and faith leadership.
and radicalisation. A summary of
Government work in this area is included
The role of policing in Prevent
in ‘Conflict prevention and resolution’
9.16 The role of law enforcement on page 98. Also included below is a
agencies is as important to Prevent as short account of programmes managed
it is to Pursue. A major new police Prevent by the Department for International
Strategy and Delivery Plan was launched Development (DFID). The primary purpose
in 2008 with 300 new ring-fenced staff of DFID’s work is poverty reduction
being recruited in 24 forces to work overseas and is again not formally part
alongside the national and regional of CONTEST. However, in addressing
counter-terrorism policing structure. aspects of poverty overseas such as poor
The new staff will also work very closely access to justice and education, DFID’s
with the neighbourhood policing teams programmes can make a significant
which have been established over the contribution to CONTEST’s overarching
past few years141. The police will identify objectives by addressing the underlying
and take action against individuals who social and economic grievances that
are promoting violence and are intent on can make communities vulnerable to
recruiting often vulnerable young people extremist messages.
into terrorist networks. The police can
also identify places where radicalisers
may operate and where vulnerable
individuals may be located and provide

Part 2 Measuring progress
9.19 We need to be able to measure
Section 9 progress with our Prevent strategy.
We have established a target, included
in a National Indicator Set which for the
first time sets out the role and objectives
for local authorities in England142 in
delivering Prevent (see Section Thirteen,
page 138). We have agreed related
targets for policing. And we also assess
progress against three outcomes in
Public Service Agreement 26: Reduce the
risk to the UK and its interests overseas
from International Terrorism143; these
focus on building resilience in domestic
communities, counter-radicalisation work
in key domestic sectors and services; and
interventions in overseas priority countries.

Promoting our shared values
The purpose of our Prevent strategy is to shared values will continue to be reflected
stop people from becoming terrorists or in the groups we support and the projects
supporting violent extremism. we sponsor.
As part of this strategy we will take action We will ensure that local authorities
against those who defend terrorism understand the risk to community
and violent extremism. The Government cohesion posed by some organisations.
will continue to take action outside this We will develop ways to help communities
strategy against those who try to defend challenge those who want to work against
the use of violence to further other our shared values.
causes (for example animal rights).
We want to make it harder for violent
As Government, we will also continue extremists to operate in our country
to challenge views which fall short of and win support for their activities and
supporting violence and are within the ideologies. But we also need to be clear
law, but which reject and undermine our about the kind of country which we want
shared values and jeopardise community for ourselves.
cohesion – the strong and positive
relationships between people of different
ethnic, faith and cultural backgrounds in
this country. Some of these views can
create a climate in which people may be
drawn into violent activity.
We have no intention of outlawing these

views or criminalising those who hold
them. Freedom of thought and speech
are rights which are fundamental to our
society. But we will not hear these views
in silence. We should all stand up for our
shared values and not concede the floor
to those who dismiss them.
The duty on all of us – Government,

citizens and communities – is to
challenge those who, for whatever reason
or cause, reject the rights to which we
are committed, scorn the institutions and
values of our parliamentary democracy,
dismiss the rule of law and promote
intolerance and discrimination on the
basis of race, faith, ethnicity, gender
or sexuality.
We already have a long tradition of

building strong, empowered and resilient
communities, tackling all forms of hate
crime, and promoting equal opportunities.
Our challenge to those who dismiss our

Part 2 Prevent programmes the Islam Citizenship Education
Project being supported by the
Section 9 9.20 Over the next period the Government Schools Development Support Agency
and local partners will continue to deliver and a number of community-based
an ambitious range of programmes organisations.
against the objectives set out at 9.11
• Published in October 2008, the DCSF
above144.
toolkit for schools on preventing
violent extremism, ‘Learning together
Challenging the ideology behind
to be safe’146 gives practical advice on
violent extremism and supporting
how schools in England can use the
mainstream voices
curriculum to equip young people with
9.21 Working alongside Muslim scholars, the knowledge and skills to be able
faith groups and many other credible to challenge extremist narratives. In
and influential voices the Government addition, DCSF is investing £1 million
and Devolved Administrations will to strengthen the teaching of Religious
challenge the ideology that supports Education and ‘identity and diversity’
violent extremism and support those was introduced as a new strand in the
who develop positive alternatives. citizenship curriculum in 2008.
Priority programmes will provide advice
• The Welsh Assembly Government
on communications regarding terrorist
(WAG) and South Wales Police have
ideologies, sponsor the wider teaching
jointly funded ‘Getting on Together’,
of Islam and religious education and
a pilot project in three Cardiff schools.
develop citizenship education in
This challenges extremist ideology
mosque schools.
and is taught to year 10 pupils as
• RICU145 and its sponsoring part of their Personal and Social
Departments will provide advice education lessons.
on challenging ideologies behind
• CLG and FCO continue to support the
violent extremism.
Radical Middle Way series of scholars’
• FCO and RICU are also working roadshows and events in the UK
on a project to ensure that clear and overseas.
and credible counter-radicalising
• NOMS work includes further training
theological advice is prominent and
for Muslim Chaplains and other front-
accessible on the internet in a variety
line staff.
of languages (see ‘The Internet and
Prevent’, Section Nine, page 94).
Disrupting those who promote violent
• Department for Innovation, Universities extremism and supporting the places
and Skills (DIUS) continues to work where they operate
with the Higher Education Funding
9.22 Evidence and intelligence suggest
Council for England (HEFCE) and
that the ideology of violent extremism
the university sector to address the
gains influence through individuals
gaps in Islamic studies teaching and
and groups who actively promote it:
research; HEFCE has committed
the messenger is as important as the
£1 million to start this work.
message. Radicalisers exploit open
• CLG are supporting a project with spaces in communities and institutions,
universities to work with Muslim including mosques, educational
scholars, leaders and academics to establishments, prisons, youth clubs
lead thinking on contextualising Islam and a wide range of private venues. The
in Britain. Government will work with communities
to disrupt these radicalisers using the full
• CLG and Department for Children,
range of legislative powers and with those
Schools and Families (DCSF) support
responsible for the places they use to
the development of citizenship
ensure it is much harder to operate.
education in mosque schools through

Part 2 • Using the new legal powers under
the Terrorism Act 2006 the police
• As the Home Secretary announced
on 28 October 2008, UKBA will
Section 9 will prosecute those who encourage make enhanced use of the power of
or glorify terrorism and take action exclusion to ensure that those who
against the places where they operate. promote violent extremism and stir up
hatred in the community are excluded
• DIUS has published two sets of
from entering the UK. UKBA will also
guidance147 to enable higher and
make all possible use of the power
further educational institutions to
to deport such people where they are
reduce the risks of radicalisation
UK residents, if necessary following
on campus and are targeting their
removal of their British citizenship.
implementation work in the highest
priority148 establishments.
Supporting individuals who are vulnerable
• NOMS future work includes developing to recruitment, or have already been
effective intelligence infrastructures recruited by violent extremists
in prisons; developing a better
9.23 Apologists for violent extremism
understanding of risk and motivating
very often target individuals who, for
factors behind violent extremist
a range of reasons, are vulnerable to
ideology; delivering practical support
their messages. Vulnerability is not
and training for staff and increasing
simply a result of actual or perceived
understanding of how to manage
grievances. It may be the result of family
extremist offenders both in custody
or peer pressure, the absence of positive
and in the community, and ensuring
mentors and role models, a crisis of
that partner agencies are appropriately
identity, links to criminality including other
involved in those strategies.
forms of violence, exposure to traumatic
• CLG are supporting the development events (here or overseas), or changing
and implementation of a set of circumstances (eg a new environment
standards and recruitment framework following migration and asylum). The
for all chaplains engaged in public Government will continue to prosecute
service (including universities, those who commit criminal offences but
prisons, hospitals, police forces and it is also our intention to provide early
immigration centres). support to those who are being drawn
into offending.
• OSCT are working closely with industry
to reduce access to illegal content on
9.24 Priority programmes will support
the internet and providing tools for
those who are believed to be vulnerable
parents and other users to restrict
to radicalisation (by providing peer
access to such material online.
mentoring, diversionary activities and
(Details of this work are set out in
leadership programmes and by equipping
‘The Internet and Prevent’, Section
people with the knowledge and skills to
Nine, page 94).
challenge extremist narratives); more
• Government Departments will support intensive interventions will focus on
a wider range of venues that may be people who have already been drawn
exploited by radicalisers, including into violent extremist networks. This work
colleges, universities, prisons, youth builds on existing multi-agency support
clubs and community centres. There mechanisms at a local level to support
is a key role here for the police in vulnerable adults and early intervention
providing both information and advice. work with at-risk young people as part of
Every Child Matters149.
• CLG are supporting the Charity
Commission’s Faith and Social • Over £7 million has been made
Cohesion Unit and working with the available over two years to new
independent Mosques and Imams projects run by the Youth Justice
National Advisory Board to raise Board to develop counter-radicalisation
standards in mosques. projects for young offenders or those

Part 2 at risk of offending. Practitioners in
the 51 Youth Justice Board areas are
Increasing the resilience of communities
to violent extremism
Section 9 being trained now to support these
9.25 The overwhelming majority of
new projects.
people in all communities in this country
• The Government has put in place the reject violent extremism but they may
Channel programme 150, coordinated by not have the capacity and information to
the police and local authorities, which effectively challenge it. The Government
aims to identify those at risk from will support individuals and networks
violent extremism and provide help to across all sectors (voluntary, faith, public
them, primarily through community- and private) that are able to do so and
based interventions. There are provide positive alternatives to those who
currently 11 Channel sites; another may be drawn to violent extremist activity.
15 are planned.
• CLG will continue to fund local
• The DCSF toolkit for schools authorities (£45 million over three
encourages staff to support pupils years) to work with local partners and
who may be vulnerable to being drawn communities to deliver across all the
into extremism as part of their wider objectives of the Prevent strategy.
safeguarding responsibilities. This is now core business for local
authorities. Projects are funded across
• UKBA will develop a strategy for
a very wide range of areas, including,
supporting vulnerable individuals in
mentoring, training and education,
immigration detention centres through
sport, culture and volunteering, and
a programme of guidance and training
in providing forums for debate and
for detention staff, managers and the
discussion on politics and theology.
chaplaincy. UKBA will also improve its
In Wales, the WAG is working with
ability to identify and refer for support
local authorities in Cardiff, Swansea,
individuals at risk of radicalisation in
Newport and Wrexham on local
the asylum system and, through the
projects which support Prevent.
‘Earned Citizenship’ programme, will
support the integration of migrants • During 2008/09, CLG are funding
into UK society. over 30 national projects through
the Preventing Violent Extremism
• NOMS will build upon a detailed
Community Leadership Fund that will
programme of research, trial and
build the capacity of communities and
evaluations to develop intervention
key groups such as Muslim women,
approaches for extremist offenders.
young people and faith leaders. This
• OSCT has established an international funding will continue until 2010/11.
practitioners and research network
• Young people themselves can be the
to develop and share tools and
most credible voices and strongest
techniques to help those who have
advocates against violent extremism.
already become radicalised turn away
A Young Muslims Advisory Group
from violent extremism. Sponsorship
has been established to advise the
for this network will continue with the
Government on their role in tackling
objective of providing and informing
violent extremism and will now take
new ‘deradicalisation’ programmes in
forward a programme of work to
this country.
engage young Muslims across the
country, including holding a National
Youth Conference in March 2009.
• A National Muslim Women’s Advisory
Group has been established with
three priority areas for further
work: civic participation; theological
understanding; and the identification
of role models.

Part 2 • CLG are supporting a range of training
programmes for Muslim faith leaders
• The police will continue to roll out
Operation Nicole, a table top exercise
Section 9 and facilitating an independent intended to bring mainly Muslim
community-led review of training for communities and police officers
Muslim faith leaders which will report together to work through a hypothetical
in 2009. counter-terrorism incident, and explore
the issues which it raises.
• CLG and RICU are developing a
communications ‘toolkit’ for local • Several police powers which are
delivery partners to build their important to the Pursue workstream
capacities to implement effective have attracted negative comment
communications around the from some communities. They
Prevent agenda. include Section 44 (police stop and
search powers) and Schedule 7 (stop
Addressing grievances and search powers at ports). The
Government is engaging in community
9.26 Apologists for violent extremism
consultation about these powers,
both exploit and create grievances
which need to be retained but in
to justify terrorism. Some of these
a way that commands support. A
grievances reflect the experiences of
small number of responses from
individuals living in this country: racism,
community groups on Schedule 7
discrimination, inequalities, lack of
powers have been received. These
social mobility, under employment, the
have been reviewed and incorporated
experience of criminality. A wide range
where possible into the draft Code of
of well established Government policies
Practice for Parliamentary approval.
and measures are already addressing
these issues. We also recognise that • Government Departments and the
actions taken in support of the Pursue Devolved Administrations are working
agenda can be exploited by apologists together to explore where there may
for violence and indirectly facilitate be productive links between long-
radicalisation. established programmes to address
inequalities (such as in employment,
9.27 Other grievances are based welfare or health-care provision) and
on a perception of this country and the Prevent strategy. For example, the
Government policy, notably foreign DWP managed Cities Strategy, which
policy. Many of these perceptions tackles worklessness, is targeted at
are misinformed. We will explain and the most disadvantaged communities
debate our policies and refute claims in the most disadvantaged areas.
made about them by those who 13 of the 15 pathfinders have
support terrorism. local ethnic minority targets and
many cover large concentrations of
9.28 There are therefore a very wide Muslim communities; work is being
range of programmes under this part of undertaken to identify where these
Prevent, both in this country and overseas: programmes overlap with Prevent
priority areas.
• The police have published guidance
to ensure that senior officers have • CLG works with other Government
the knowledge to deal with community Departments to reduce race and
grievances arising from operations faith inequalities in education, health,
to disrupt and control terrorism in housing and the criminal justice
this country. Work will continue to system, as well as the labour market.
build links to community leaders and The Department leads effort to reduce
institutions and to ensure that they perceptions of race discrimination,
are fully briefed on police priorities creating more cohesive communities,
and concerns. tackle racism, extremism and hate
and promote inter-faith activity and a
shared sense of belonging.

Part 2 • The FCO, leading on Prevent overseas,
has an £87 million programme
reinforced with ministerial interviews
with diaspora radio and the Islam
Section 9 intended to build the resilience of Channel, and features on the
governments and communities in DFID website. This model will be
Prevent priority countries needed to applied to the forthcoming launches
prevent extremism, for example by of the Bangladesh and Somalia
improving governments’ capacity to Country Plans.
tackle radicalisation and supporting
communities to tackle extremism. Developing intelligence, analysis
and information
• The mission of DFID is to reduce
poverty in developing countries. 9.29 The Government’s understanding of
Ongoing programmes to ensure radicalisation and its causes is growing,
access to more and better education but we need more open source and
will also help, over time, to increase classified material, better analysis of
the resilience of communities it and a much wider distribution of our
overseas (see ‘Prevent action reporting to a new range of readers.
overseas’, Section Nine, page 96).
• The police, security and intelligence
DFID will continue to work with other
agencies all have new Prevent-related
Government Departments to ensure
intelligence requirements, building on
that wherever possible its country
their existing programmes.
programmes are coordinated with
Prevent objectives. The DFID Pakistan • The major counter-terrorism policing
programme developed in 2008 was an units will be sharing information
early example. with local authorities to provide
them with a more comprehensive
• The FCO is undertaking a major
assessment of areas at risk from
programme of foreign policy outreach
terrorism and radicalisation and
to domestic Muslim communities.
enable authorities to better target
Led by the Foreign Secretary,
Prevent related interventions. This will
‘Bringing Foreign Policy Back Home’
be a major piece of work for the police
is a campaign to debate and explain
counter-terrorism community, and a
foreign policies to challenging
significant step in sharing information
audiences.
with the wider police establishment
• DFID’s development programmes and through complementary
aimed at particular aspects of poverty, work to receive such information,
eg tackling corruption overseas, with partners.
can over time also address some of
• To build the Government’s analytical
the underlying grievances that can
capability a cross-Whitehall central
lead communities to support violent
Prevent unit has been created. This
extremism (see ‘Prevent action
team will collate information from a
overseas’, Section Nine, page 96).
wide variety of sources to develop a
As part of its wider efforts to increase
clearer understanding of radicalisation
development awareness DFID will
in the UK and to share that information
explain, consult on and present
with local partners.
the Government’s development
agenda to local audiences, including • The social science research team
Muslim communities, via media and within OSCT is leading a multimillion
community engagement channels. pound cross-Government programme
DFID’s Pakistan Country Plan was of work to research the causes of
launched in September 2008 through radicalisation, identify appropriate
events in London, Birmingham and interventions and evaluate the impact
Bradford, targeted at Pakistani of existing counter-radicalisation
community leaders, MPs, non- projects. A significant proportion
governmental organisations and of this work relies on open source
local and diaspora media. The key material and academia.
messages from the event were

Part 2 • Prevent research work in the UK is
being complemented by comparable
Section 9 international studies, initiated by
FCO and DFID. International work is
focused on understanding the causes
and in DFID’s case, the social and
economic drivers of radicalisation,
for example in countries such as
Pakistan, Bangladesh and Somalia.
Strategic communications
9.30 This part of the Prevent strategy
is addressed in Section Fifteen on
Communications. Work on Prevent and
the internet is described in more detail
within ‘The internet and Prevent’, Section
Nine, page 94.

The internet and Prevent
Part One of this paper identified As the Prevent strategy has evolved, the
technology as one of the strategic OSCT in the Home Office has developed
factors driving terrorism and noted work to disrupt use of the internet for
that the communications revolution in extremist messaging and increase use of
particular had enabled the wider and the internet to promote alternative views,
faster dissemination of violent extremist with the overall aim of making the internet
propaganda as well as fund-raising, a more hostile environment for terrorists
recruitment and operational planning. and violent extremists.
Tackling terrorist use of the internet is
therefore a key part of both the Pursue The legal basis for removing unlawful
and Prevent strategies. terrorist-related material from the internet
(whether or not the source of it can be
The security and intelligence agencies or has been arrested) is Section 3 of
and police have worked to address the Terrorism Act 2006. This allows a
terrorist operational use of the internet police officer to issue a notice on an
for many years. Internet Service Provider (ISP) requiring
it to remove or modify unlawful terrorist-
In July 2007, Younis Tsouli pleaded related material within two working days.
guilty to charges including incitement to In practice close cooperation with industry
commit acts of terrorism via the internet in this country means that, to date, the
and later that year he was sentenced police have been able to secure the
to 16 years in prison. From his home in removal of content without the need for
London, Tsouli set up websites which notices to be served under Section 3.
were uploaded with videos from Al Qa‘ida
in Iraq and established and administered The greater problem is that most of the
a chat forum on which suicide bombers material of concern is hosted on web
were recruited151. Facilitating contacts servers overseas. Section 3 notices
between thousands of individuals, he also can be issued to ISPs outside the UK
posted tutorials on making suicide vests but cannot be enforced. Multilateral
and explosive devices. Tsouli became the cooperation and coordination are
main distributor of video material from therefore essential. Most other states
Al Qa‘ida in Iraq after establishing an face challenges similar to our own. We
online relationship with an associate are actively engaged in a significant EU
of Abu Musab al Zarqawi152. project with Commission support in this
area. We are also assisting with the
In September 2008, Hammaad Munshi development of a Europol hosted web
was convicted of making a record of portal – the ‘Check the Web’ project
material likely to be useful for terrorism – which is available to investigating
after he downloaded information about agencies across the EU, to share
bomb-making from the internet. Munshi information on open access terrorism
was sentenced to two years in a young related websites and content. And we are
offenders’ institution153. cooperating with a UN Counter Terrorism
Implementation Task Force Working Group
on terrorist use of the internet, which
has recently published its first report
on the subject, evaluating options for the
future154.

Work has also been undertaken in communities, and using the internet to
the UK to identify ways in which the reach audiences in the UK and overseas.
dissemination of material from web sites Radicalmiddleway.co.uk saw 65,000
hosted overseas can be limited. unique hits in October 2008 (a figure that
has risen steadily since April 2008 when
One option is to make wider use of the site received 40,000 hits).
filtering or parental control software.
Following the announcement by the Prime Radical Middle Way International is now
Minister in November 2007 Home Office organising a series of high-profile tours
Ministers and officials have engaged with by mainstream Islamic scholars overseas
filtering companies to ensure that their and will develop a specific website for
products provide a high level of protection each pilot country in the local language.
against unlawful material that promotes Projects like this demonstrate how the
or encourages terrorism. With effect from internet can be used to promote debate
November 2008, filtering companies have and to challenge extremist ideologies.
begun to restrict access to additional
terrorist-related web addresses in their
products. One of these companies alone
reaches over 170 million end users, and
several of them provide filtering to schools
and educational facilities in the UK.
The Protection of Children Act 1978

and subsequent legislation makes it
an offence to make, own or distribute
indecent photographs of children under
the age of 18 and the ‘making’ of such
images includes downloading a copy
of a child abuse image on a computer.
While recognising that the legal framework
around radicalising material is different
the Government continues to explore
options relating to restricting access
to such material with industry.
Communities also have an important

part to play in tackling terrorist use of
the internet. In October 2008, a Home
Office sponsored seminar brought
together members of communities with
representatives of Government, the
police and academia to discuss this.
A network of community practitioners is
now being formed to share best practice,
develop new ideas to tackle the threat of
radicalisation on the internet and work to
increase positive messaging; OSCT and
other Departments will provide assistance
where it is sought.
Separately, organisations such as Radical

Middle Way, an established Government
partner organisation, are promoting
debate within UK Muslim

Prevent action overseas
As Part One of this strategy makes where it has occurred, be it in Iraq,

clear, the terrorist threat that we now Palestine or Somalia, is also vital to our
face is international. In seeking to stop long-term effort to address grievances
people becoming or supporting violent and stem the radicalisation of vulnerable
extremists, we therefore need to work communities, as well as being an
overseas, just as much as at home, important foreign policy objective in
in order to understand the process of its own right.
radicalisation, to reduce the vulnerability
of our diaspora communities and the Overseas Prevent work connects to all
countries and regions from which objectives of the new Prevent strategy:
they come, to strengthen the voice
of mainstream Islam to counter the Challenge the ideology behind
propaganda of the extremists, and to violent extremism and support
tackle the grievances which are exploited mainstream voices
by those extremists. Our commitment to
Mainstream Islamic scholars and
protecting and promoting human rights
grassroots organisations, rather than
underlies all Prevent overseas efforts.
governments, are often best placed to
counter the impact of extremist ideology
Our response has increased significantly
on vulnerable populations. Many of the
in scale over the last two years: FCO
most influential figures and organisations
spending alone on Prevent overseas
are based overseas. We have provided
has more than doubled and will have
media and English language training,
trebled by 2010. It has also widened in
notably for an English Language Centre at
scope, with support from DFID and the
Al Azhar University in Cairo, a major centre
British Council, and more international
of Sunni Islamic learning. We support
work by the Home Office and CLG.
visits by Islamic scholars to Britain and
And it has changed in character, with
other countries; we fund The Radical
Ministers and senior officials talking more
Middle Way programme (see ‘The Internet
to communities in the UK about their
and Prevent’, Section Nine, page 94).
concerns – notably regarding the role
of the UK in Iraq and Afghanistan – and
Disrupt those who promote violent
working with those same communities to
extremism and support the places where
challenge perceptions overseas of life as
they operate
a British Muslim in the UK.
We run programmes in North Africa and
As well as building our engagement with South Asia that strengthen the resilience
global centres of Islamic ideology, the of institutions including prisons, schools
FCO network of posts also work with other and universities, which are vulnerable to
governments and key non-governmental violent extremism building on programmes
organisations to strengthen their in this country.
capacity to combat the effects of violent
extremism. We seek to multiply the Support individuals who are vulnerable
impact of this work through coordinating to recruitment, or have already been
work with international organisations recruited by violent extremists
such as the UN and the EU.
We fund programmes aimed at vulnerable
young people, including work in some 700
Although formally not a part of CONTEST,
schools across Pakistan and Afghanistan.
our success in preventing conflict, and
The Sharing Futures Strand of the
building a sustainable and just peace

British Council’s Intercultural Dialogue Britain for British Muslims: delegations
Programme, which focuses on the have travelled to Pakistan, Sudan,
Middle East and South Asia, also Iran, Afghanistan, Egypt, Somalia,
helps to counter radicalisation Turkey and Saudi Arabia. Foreign
and youth alienation, build trust and Office Ministers and officials have also
inter-cultural understanding around conducted regular outreach events in
shared values, and to tackle the Muslim communities in 2008.
obstacles that young people face
which make them vulnerable to DFID is also working to build greater
recruitment by extremists. awareness of the UK aid programme
among domestic audiences and to
Increase the resilience of establish concern for development as a
communities to violent extremism shared national value. As well as using
traditional communication tools, DFID
We support communities in building
is using more innovative approaches
resistance to violent extremism by
to reach out to local communities and
strengthening civil society, enhancing
increase awareness of the full scope of
economic opportunities, and providing
the UK’s international priorities.
education that equips young people
with marketable skills. For example
in Iraq, the FCO fund a programme
to train youth advocates and social
workers to work with young people
who are about to be released from
detention, and to provide vocational
training, small loans and business
development services. The objective
is to ensure young people are
successfully reintegrated into
families and communities and to
reduce the risk of their recruitment
by extremist militias.
Addressing grievances
The FCO leads a significant overseas
programme of work to build the
resilience of governments and
communities in Prevent priority
countries, for example by improving
governments’ capacity to tackle
radicalisation and supporting
communities to tackle extremism.
Through its core objective to reduce

poverty overseas, DFID can also have
an important Prevent impact by helping
to address the national and local
grievances which make communities
susceptible to extremist messages
– by reducing inequalities, improving
local governance and access to
security and justice for ordinary people.
The FCO seeks to better inform people

in Britain and abroad of UK foreign
policy; a programme of visits by British
Muslims are intended to explain life in

Conflict prevention and resolution
The first part of this strategy explained the new government. We have also
how terrorism has emerged and contributed to the building and equipping
flourished around unresolved regional of the African Union Mission in Somalia
disputes and conflicts. The National (AMISOM) with headquarters
Security Strategy identifies global in Mogadishu.
instability, conflict, and failed and fragile
states as one of the main security The resources available for interventions
challenges that we face155. to prevent and respond to conflict are
primarily controlled by the FCO, MOD and
The National Security Strategy explains DFID and include funding for stabilisation
that our response to these challenges and reconstruction in conflict zones,
will always favour early engagement and currently Afghanistan and Iraq. In
a multilateral approach, ideally through 2009/10 £627 million will be available to
international institutions. Our aims will support stabilisation, conflict prevention
be to: and peacekeeping activities (working
alongside the United Nations, NATO, the
• prevent conflict, by ensuring that its
European Security and Defence Policy,
causes are addressed early
the EU Common Foreign and Security
• manage conflict and its impact, by Policy, the Organisation for Security and
helping the development of local Cooperation in Europe and the African
and national solutions and conflict Union), up from £511 million in 2006/07.
resolution capacity
Overall funds available for conflict
• stabilise conflict prone environments
prevention and stabilisation were
• consolidate peace, by enabling the increased in the current Comprehensive
conditions leading to an effective, Spending Review (CSR).
capable and accountable state and
broad-based economic growth. These Departments and the Cabinet
Office jointly deliver the Government Public
Interventions designed to achieve Service Agreement for this area. The aim
progress towards one particular outcome of this is to reduce the impact of conflict
will nearly always have implications through enhanced UK and international
for others. Some interventions can be efforts. Indicators for this PSA include a
pursued in parallel. In Sudan we are downward trend in the number of conflicts
working with the international community globally in particular in sub Saharan
to prevent, manage and stabilise conflict, Africa, Europe, central and South Asia and
and to support both the Darfur Peace the Middle East and North Africa; reduced
Process and the Comprehensive Peace impact of conflict in specific countries and
Agreement. In Yemen our work to reduce regions (Afghanistan, Iraq, the Balkans,
tribal conflict focuses on issues like land Middle East, Sierra Leone, Democratic
and water resources, supporting broader Republic of Congo and the Great Lakes
development and counter-terrorism region, the Horn of Africa, Nigeria and
objectives. In Somalia we work with the Sudan); more effective international
international community to support the institutions; and more effective UK
Djibouti Process, facilitating political capability to prevent, manage and resolve
dialogue and a peaceful transition to conflict and build peace.

Part 2 Prevent: future challenges • This strategy will depend upon
international cooperation and on
Section 9 • We need to continue to improve work with and by other governments.
our understanding about the drivers The counter-terrorism priorities
for radicalisation, in this country of other states may encourage
and overseas. radicalisation; unresolved conflict
and disputes can also quickly
• Much of the Prevent strategy is new
undermine our domestic Prevent
to this country and to governments
strategy. Developments in Pakistan,
overseas. There is a shortage of
Bangladesh or North Africa can
proven best practice in certain key
all have a significant impact
areas, notably in programmes to
on respective diaspora
identify and support vulnerable
communities here.
individuals. Developing international
best practice will be vital.
• We need to continue to incorporate
Prevent into more national, local
and regional policy areas and to
ensure Prevent is a familiar and
well understood issue for
front-line services.
• Departments, security and
intelligence agencies and the
police will need to address all our
Prevent objectives, balancing work
to support vulnerable individuals
and enhance the resilience of
communities with operations
to disrupt propagandists and
their networks.
• Prevent depends on a shared
understanding of the threat. We
need to develop a consensus about
this, often by encouraging more
discussion about it. We need to build
further trust and confidence between
police and Muslim communities.
• Some Muslim communities believe
Prevent encourages the association
of Islam with terrorism. The
Government has made it clear that
it does not hold this view. But these
attitudes underline the need for
very clear communications about
counter-terrorism in general and
Prevent in particular.
• We will need to coordinate work
under Pursue and Prevent and
ensure they do not undermine one
another (see page 78).

Pakistan/Afghanistan
Part One of this strategy explained that were Pakistani. Violent extremist
the threat faced by the UK crosses organisations, including Al Qa‘ida and
national borders and an effective groups affiliated to the Taliban, have a
international response is critical to every very significant presence in the Federally
part of CONTEST. Most terrorist incidents Administered Tribal Areas (FATA). Their
in the UK have an overseas connection influence is spreading rapidly in areas
and international terrorist organisations of the North West Frontier Province.
threaten the UK’s interests overseas. A separate long-running separatist
Few countries around the world are as insurgency in Baluchistan continues.
important to CONTEST and to our broader In some areas extremist organisations
National Security Strategy as Pakistan have considerable freedom of movement
and Afghanistan. and local control.
The principles set out in Section Seven, This matters not just to Pakistan, but also
on which CONTEST is based, are the to the UK. In some cases cells in this
basis for our work in and with these two country have received tasking, direction
countries. We will address the causes as and training from Pakistan-based
well as the symptoms of radicalisation groups, principally Al Qa‘ida. In many
and terrorism, notably by tackling conflict, of the important attempted operations
poverty and poor governance and the here conspirators travelled to and from
absence of rule of law. Many of these Pakistan preparing operations.
underlying causes span the Pakistan-
Afghan border and demand a coordinated The investigation of these operations
approach across both countries, the requires very close cooperation between
wider region, and the different elements agencies in the UK and their counter
of our engagement. We will ensure that parts in Pakistan. Contacts have
our counter-terrorism cooperation with developed significantly in the last five
Pakistan, Afghanistan – as with other years, reflecting the scale of the shared
countries – is based on the rule of law threat. Our counter-terrorism programme
and fundamental regard for the protection with Pakistan, worth approximately £10
and promotion of human rights. million in 2008/09, includes assistance
with forensics, crime scene management,
Pakistan crisis response and civil aviation security
(further funding has been directed
Most significant terrorist investigations towards counter-narcotics projects). This
in the UK have links to Pakistan and for will enhance the capacity of civilian law
this reason cooperation with Pakistan is enforcement to tackle the terrorist threat
critical to our delivery of CONTEST. through the proper legal process.
More broadly, we want to see a secure, Prevent is an important part of our work
stable, prosperous and democratic in Pakistan. We are working with the
Pakistan. The Pakistani Government media, civil society and others to build
faces challenges in reaching these goals, resilience to violent extremism and tackle
including poverty, poor governance the grievances that drive radicalisation.
and extremism. The Government of Pakistan has the key
role to play in this – effectively countering
During 2008 terrorist and insurgent extremism will require strong political
attacks in Pakistan killed over 2,000 leadership and long-term commitment.
people. The great majority of the victims
Tackling both the causes and the Afghanistan
symptoms is particularly important in our
efforts to counter the Taliban insurgency We intervened, as part of an international
in Afghanistan. Pakistani support on coalition, in Afghanistan in 2001 because
this is essential. We recognise the the country had become a safe haven for
efforts Pakistan has made to tackle terrorist organisations, which threatened
violent extremism in the border areas, this country and the region. Coalition
but the challenge is very considerable. action destroyed much of the terrorist
A comprehensive strategy, combining infrastructure within Afghanistan. This
security, governance and development significantly disrupted the operational
measures is needed. We are working with capabilities of terrorist groups and
the Government of Pakistan to support dispersed the Al Qa‘ida leadership.
their efforts to improve the rule of law in The coalition action also created the
the border areas. conditions for elections, first for a
President and then, in 2005, for
Grievances associated with poor a National Assembly (when 51% of
governance, poverty and lack of access Afghans voted).
to services, alongside a number of
contributory factors (including The focus for the UK now is to work with
perceptions of Western foreign policy) the elected Government of Afghanistan
make communities vulnerable to to build a secure and stable country.
extremist messages. This will require a significant ongoing
security commitment as part of an
The Government of Pakistan faces international coalition – focused on the
significant economic and social continued development of Afghan police
challenges. 36 million Pakistanis (22% and military capacity to a level where
of the population) live below the poverty they can take the lead in dealing with
line. Two out of every five children the insurgency and maintaining security
are malnourished and many have no – to stop violent extremist organisations
education. The UK is committed to regaining the bases which they lost in
the fight against poverty in Pakistan, 2001 and using those bases to again
in partnership with the Government of threaten the security of this country.
Pakistan, the international community There are currently almost 8,500 British
and civil society. The UK is the second soldiers in Afghanistan. As part of our
largest bilateral donor to Pakistan and wider work training and supporting all
has doubled aid to £480 million during the Afghan security forces, we work
2008–11. Key aims of this programme with their security services on counter-
will be to give people access to better terrorism. We have already played a major
health and education. Alongside national role in building the capacity of both the
programmes development aid will be Afghan National Army and the security
focused on Pakistan’s poorest provinces: organisations to tackle terrorism and
Baluchistan, Punjab and the NWFP. insurgency and will continue to do so.
The UK is also committed to wider We recognise that in Afghanistan counter-

support for the democratically elected insurgency, counter-terrorism and counter-
Government of Pakistan. We have helped narcotics work must be coordinated with
develop the ‘Friends of Democratic and be part of a broader strategy to build
Pakistan’ group to support Pakistan in stability and security. In Afghanistan,
tackling the problems it faces. We will as in parts of Pakistan, poverty and
support the economic reform programme deprivation create circumstances
and Pakistan’s collaboration with the IMF. conducive to radicalisation.
We will advise on good governance.

Since 2001 the Government has
committed over £1.65 billion to aid
reconstruction and development.
Although the challenges remain
considerable a great deal of progress
has been made. Infant mortality has
been significantly reduced; access to
healthcare and education have sharply
increased; average income per head
has increased by over 70% since 2002;
the economy grew 42% from 2002/03
to 2005/06 and the IMF forecast 12%
growth in 2007/08. Three million Afghans
have benefited from rural water and
sanitation projects. Five million refugees
have returned home.
Promoting respect for human rights is

essential for a stable and democratic
Afghanistan. The UK is sponsoring a
Human Rights Support Unit in the Afghan
Ministry of Justice. And we have provided
support to the Afghan Human Rights
Commission which has over 500 staff
working across the country. A large part
of its work focuses on women’s rights.
Afghanistan currently supplies over 90%

of the world’s opium used for heroin
supply and the trade generates billions
of pounds of revenue for global organised
crime and for terrorist and insurgency
groups. We are therefore also working
to increase the Afghan Government’s
capability and capacity to tackle the
narcotics trade and we support the
Afghan poppy eradication programme.
During 2008 poppy cultivation in
Afghanistan declined by some 19%.
Pakistan’s tribal areas continue to

provide both a safe haven for Al Qa‘ida
and a base from which it can support
the insurgency in Afghanistan. Security
in Afghanistan depends in large part on
success across the border in Pakistan
and a strong working relationship
between Afghanistan and Pakistan is vital
for regional stability. The Governments of
both countries have taken positive steps
to improve their bilateral relationship and
the UK is committed to supporting them.
Part 2 Protect: strengthening our protection against attack
Section 10
Summary
To achieve the aim of our strategy we also need

to reduce the vulnerability of this country and its
interests overseas to terrorist attack. This is the
purpose of Protect. A considerable amount of
progress has been made on this workstream over
the past five years. It covers protection of critical
national infrastructure, crowded places, the transport
system, our borders, and our interests overseas; and
protection against threats from insiders and from the
misuse of hazardous substances.
The critical national infrastructure delivers essential services to the public. Damage
to that infrastructure can have severe economic impact or cause large scale loss of
life. Intelligence shows that terrorists are interested in attacking national infrastructure
targets and recognise the potential impact those attacks can have.
The Government has put in place a comprehensive programme to protect the national
infrastructure from terrorism. The programme is supported by the Centre for the
Protection of National Infrastructure, established in 2007.
Crowded places are also a preferred terrorist target. Through the National Counter
Terrorism Security Office the Government has provided security advice to crowded
places (including sporting venues and shopping centres). Specialist programmes
have been developed for the transport network – air, sea, and rail (including
underground systems).
Protecting our borders has been a key part of this workstream. The new UK Border
Agency integrates three previous organisations into an agency of more than 25,000
staff, with a presence in 135 countries. New biometric visa and travel tracking
programmes have significantly enhanced border security.
Part 2
Section 10
Action has also been taken to minimise and manage the ‘insider threat’: the risk
of staff exploiting legitimate access to an organisation’s assets or premises for
unauthorised, malicious purposes, ranging from theft to terrorism.
The Government protects UK interests overseas, including British citizens who travel or
live overseas. Programmes provide accurate advice to travellers and the private sector
on the threat from terrorism and ensure the physical protection of British diplomatic
missions and personnel overseas.
In the next three years our objectives for Protect will be to further reduce the
vulnerability of:
• the critical national infrastructure
• crowded places
• the transport system
• and our borders.
New programmes will improve the security of hazardous materials which might now be
used in terrorist attacks.
Some terrorists use false papers to travel here and to conceal their real identity.
Others have created multiple identities to avoid detection and hide their activities.
The National Identity Scheme will provide a secure way to safeguard personal identities
from misuse, and will ‘lock’ a person’s biographic information to their unique facial
and fingerprint biometrics on a National Identity Register. This biographic and biometric
information will be stored in a chip on an identity card. Identity cards do not provide
a single solution to terrorism and the Government is not proposing their introduction
only for counter-terrorism related reasons, but they do provide a valuable tool for
authenticating identity and for that reason support counter-terrorist investigations.

Part 2 Protect: strengthening our protection against attack
Section 10
Protect: key achievements national infrastructure on physical,

personnel and electronic security. CPNI
10.01 Strengthening protection against works in close partnership with a range
terrorist attack is the third workstream of Government Departments, with the
of CONTEST. Considerable progress has Devolved Administrations and with public
been made against the Protect objectives and private sector partners who own or
set by the Government in the initial operate infrastructure.
CONTEST Strategy: to mitigate the risk
of attacks on the critical infrastructure, CPNI has provided security advice,
crowded places and on transport training and threat briefings to over
systems; by strengthening our border to 200 CNI organisations and 2,000
make the UK more resilient to terrorist people from public and private sector
attack; to develop a personnel security organisations across the national
framework; and to reduce the vulnerability infrastructure. Topics addressed have
to terrorist attacks of UK interests included hostile vehicle mitigation;
overseas. detection systems; barriers and
access control; CCTV; and pre-
10.02 The effect of our Protect work has employment screening.
been to make it much harder for terrorists
to get into this country and then to attack 10.05 CPNI has developed a new
the targets which experience indicates approach to identifying and categorising
they may prefer. Our Protect work has infrastructure which has led to a more
also reduced the risk to people who may comprehensive understanding of what
be of interest to terrorist organisations. needs protecting. This takes into
account the threats, the ‘criticality’
Critical national infrastructure of the infrastructure in question and
its vulnerabilities. In partnership with
10.03 The critical national infrastructure
industry, CPNI has undertaken research
(CNI) includes the many organisations
and development into science and
that deliver essential services to the
technologies to develop protection and
public. For the purposes of our Protect
detection measures, and evaluated over
work it is divided into nine sectors:
200 security products to inform security
communications; emergency services;
measures recommended at CNI sites.
energy; finance; food; government; health;
transport and water. Intelligence suggests
10.06 The private security industry
that terrorists are interested in attacking
is a key partner of Government in the
national infrastructure targets with the
development of protective security
aim of causing disruption as well as loss
measures and capabilities for the
of life. Protecting the CNI is therefore a
national infrastructure, for crowded
key part of our counter-terrorism strategy.
places and for other sites assessed to
require heightened security (paragraphs
10.04 The Centre for the Protection
14.40 to 14.51 provide more information
of National Infrastructure (CPNI)156
about the contribution of the private
supports the delivery of this programme.
sector to CONTEST).
Established in 2007, from the merger
of the National Security Advisory Centre
and the National Infrastructure Security
Coordination Centre, the CPNI provides
integrated security advice across the
Part 2 Crowded places 10.10 Building on existing and well-
developed programmes, which are
10.07 Crowded places are also preferred
Section 10 terrorist targets. The police National
subject to Government regulation and
enforcement action, the security of
Counter Terrorism Security Office
the transport sector has been further
(NaCTSO)157, established in 2002 and
strengthened since 9/11, the 7 July 2005
co-located with the CPNI, provides expert
bombings on London’s public transport
security advice to those responsible for
system, the alleged plot against aircraft in
crowded places and for storing chemical,
August 2006 and the attack on Glasgow
biological, radiological and explosive
Airport on 30 June 2007:
material. Advice is delivered through
a network of more than 250 Counter • Aviation – Although this is the most
Terrorism Security Advisers (CTSAs) mature of the Government’s transport
around the UK, including 70 recruited security programmes, both in-flight
in 2008/09 to support the delivery security and measures on the ground
of the Government’s crowded places have been strengthened in response
programme. to changing terrorist techniques and
developments in protective security;
Since May 2006 CTSAs have provided new measures have included an
comprehensive protective security in-flight armed policing capability;
guidance and given advice to over strengthened flight deck doors;
500 sports stadia, over 600 shopping restrictions on liquids that can be
centres and over 10,000 city and town taken through search areas into
centre bars and nightclubs. Since aircraft cabins; and guidance for
January 2007, CTSAs have also run airports on the security of
over 700 Project ARGUS scenario- landside areas.
based training events to city and town
• Since 2003 Multi-Agency Threat
centre businesses to help them identify
and Risk Assessments have been
measures they can take to protect
produced jointly by all security
themselves, and their customers, and
stakeholders at airports, the regulatory
recover from a terrorist attack.
authorities and industry. These
assessments identify the threats to
10.08 The National Barrier Asset
airports from terrorism and crime,
was established in 2004 providing
and the roles and responsibilities
police forces with a capability to deploy
the different agencies have for
temporary specialist protective security
addressing them.
barriers to protect high profile locations
or temporary events, such as political • Since 9/11, a small and highly
party conferences, from vehicle borne effective network of aviation security
suicide attacks. In 2008 the size of the experts has advised British airlines
National Barrier Asset was tripled to on the security of their overseas
meet expected demand. operations and worked with those
overseas governments to develop
Transport systems and their users their aviation security capability and
to share best practice.
10.09 The transport system contains
both crowded places and elements of • Maritime – Before 9/11 the UK was
the CNI. Transport can be an attractive one of the few countries that had
target for terrorists because of its a maritime security programme in
visibility and because a successful place. Since then, the Department
attack can cause significant loss of life. for Transport (DfT) has introduced
Protective security measures for transport further measures and implemented
systems must reduce the risk of attack, international requirements for both
increase resilience to attack, have ships and ports, many of which
minimal disruptive impact and retain the have built on UK best practice. The
confidence of people who are travelling. Government played a leading role
in the adoption by the International
Maritime Organisation in 2004

Part 2 of its International Ship and Port
Facility Security Code, which details
vehicle access controls are
being delivered at key London
Section 10 security-related requirements for Underground stations.
Governments, port authorities and
shipping companies158; and by the EU UK border security
in Directive 2005/65/EC on enhancing
10.11 The Government has strengthened
port security.
counter-terrorism protection at the UK
• Railways – Protective security Border through:
programmes for the rail network were
• New, more effective organisational
developed during the 1970s and
structures: on 14 November 2007,
1980s in response to Provisional
the Prime Minister announced a wide
IRA attacks in conjunction with the
range of counter-terrorism measures
work of a dedicated police force, the
including the creation of the UK Border
British Transport Police (BTP). DfT took
Agency (UKBA)159. The new Agency
responsibility for railway security from
integrated the work of the Border
Railtrack in 2000 and introduced a
and Immigration Agency, UK visas
National Railway Security programme
and HMRC operations at the border
in 2001. These programmes were
to create an Agency of more than
reviewed and expanded following
25,000 staff with a presence in 135
terrorist attacks in Madrid in 2004 and
countries. Within UKBA, a new unified
London in 2005, with an emphasis on
UK Border Force presents the primary
staff and public awareness.
face of Government at the border and
• Building on trials in 2006 of equipment comprises almost 9,000 staff.
and dogs to detect explosives or
• Strengthening UKBA/police
traces of explosives on people and
partnerships: the UKBA and the police
bags, the BTP has expanded its
work closely at ports. It is UKBA’s role
passenger screening programme.
to ensure people and goods seeking
Successful trials of vehicle access
to enter or exit the UK are entitled
controls at major railway stations have
to do so. When people of particular
led to an installation programme for
counter-terrorism interest or with
permanent vehicle barriers.
connections to serious organised
• Underground – Security arrangements crime are identified, UKBA officers
for the London Underground network will refer, where appropriate, to police
were also developed to counter the Special Branch officers operating at
threat from Irish-related terrorism, the ports. The police have three roles
particularly through the extensive at the border: intelligence collection
deployment of CCTV in stations and on (primarily relating to national security
platforms. DfT assumed responsibility issues); protective security; and
for the security of the London uniformed general policing, including
Underground in 2003 and security management of major incidents. In
arrangements were reviewed following April 2008 a high level framework
the attacks on London in 2005. on cooperation between ACPO and
UKBA at UK ports and airports was
• Passenger screening trials to test
published160, followed by more detailed
explosive detection took place on
plans on a range of issues.
the London Underground in 2006.
These trials showed that screening • Substantially improving our
equipment and dogs can be effective knowledge about movements across
in an underground environment and the UK Border: checks by UKBA staff
BTP now carries out highly visible and here and overseas, using watchlists
regular dog patrols in underground where necessary, allow individuals and
stations. DfT is continuing to work with goods that could cause harm to the
the BTP and London Underground to UK to be identified and stopped from
assess the effectiveness and impact travelling or entering the country. An
of explosive detection capabilities; electronic borders system (e-Borders)
enables UKBA and police analysts
Part 2 to screen, check and risk assess
passenger details in advance of
10.12 To provide oversight of the UKBA,
the Home Secretary appointed John
Section 10 travel so that persons of interest can Vine as the first independent UKBA
be identified prior to their arrival in Chief Inspector. Mr Vine, a former Chief
or departure from the UK. The £1.2 Constable of Tayside Police, took up his
billion e-Borders system has screened post in July 2008. As Chief Inspector
over 80 million passengers travelling he is assessing the performance of
to the UK, using data received from the UKBA, including the operation of
approximately 105 carriers on over safeguards to protect personal data held
185 routes. This has led to over on the e-Borders system.
32,000 alerts and over 2,800 arrests
for all crimes, not specifically terrorist 10.13 Access to e-Borders information
charges, and has allowed police and is restricted to authorised staff and only
immigration resources to be targeted when necessary for legitimate border
better on those intending harm to the security and border control business.
public in the UK or to deceive the That access is controlled, monitored
UK authorities. and audited through a combination of
technical safeguards and operational
• Effective border controls: the UKBA
procedures. All information highlighted by
is trialling new facial recognition
the e-Borders system must be analysed
gates which use scanning equipment
by trained and security cleared UKBA
to compare the faces of UK and
officers. Alerts are issued only following
EEA passengers with their biometric
investigation by an analyst.
passports, providing high security with
quicker times at immigration control.
Personnel security
• New biometric visas: UKBA delivered
10.14 Personnel security seeks to
global roll-out of a visa biometric
minimise and manage the risk of staff
programme in December 2007. All visa
exploiting legitimate access to an
applicants, other than those benefiting
organisation’s assets or premises for
from a limited number of exemptions
unauthorised, malicious purposes from
and exceptions, are now required to
theft to terrorism. Perpetrators
provide their fingerprints and a digital
of this kind of activity are referred to
photograph as part of the application
as ‘insiders’.
process. The prints are checked
against the police biometric dataset.
10.15 CPNI provides personnel security
Biometric technology is proving to
advice across the national infrastructure
be a useful tool in informing the visa
on how to protect against hostile insider
decision-making process. To date, over
action, including terrorism. To raise
3.2 million enrolments have generated
awareness and improve personnel
over 23,000 matches to data recorded
security standards, CPNI has produced
in connection with an immigration
and disseminated evidence-based
matter in the UK and have revealed
guidance and advice to organisations
over 4,400 cases of identity fraud.
in the national infrastructure on a wide
• Radiological detection: ongoing range of issues including:
roll-out of the Cyclamen Programme
• pre-employment screening
is providing both a fixed and mobile
capability to detect, deter and intercept • personnel security risk assessment,
smuggled radiological material and
operated by UKBA at UK ports and
• ongoing personnel security.
airports. The mobile capability is able
to identify the material immediately
10.16 In December 2007 the
(more information on Cyclamen can be
Government commissioned an
found in Section Twelve, page 129).
independent review of personnel security
across the transport sector, which was
completed in July 2008. In the light of
its findings, a summary of which has

Part 2 been published161, the Government in
partnership with the transport sector is
10.21 The outcome of these reviews
has enabled the Government to develop
Section 10 taking action to strengthen personnel a new Protect strategic framework based
security. The DfT held a cross-sector on reducing vulnerability in eight sectors:
conference with the transport industry the critical national infrastructure;
in October 2008 to build commitment to crowded places; transport; the UK Border;
the principle of personnel security and hazardous sites and substances; hostile
address the practicalities of raising the insider action; individuals at risk of being
profile of personnel security. targeted by terrorists; and UK
interests overseas.
UK interests overseas
10.22 The Government’s new approach
10.17 The Government protects UK
is based on the following principles:
interests overseas, including British
citizens who travel or live overseas. The • Risk and proportionality: at a national
FCO aims to reduce those individuals’ and local level the Government will
vulnerability to terrorist attacks through reduce vulnerabilities where the public
the provision of accurate advice to face the greatest risks, minimising
travellers on the threat from terrorism, interference to the public and business
the physical protection of British community.
diplomatic missions and personnel
• National and local partnerships:
overseas, and advice to other British
the Government will foster a shared
interests overseas. Assistance is
understanding of risk between a
provided to foreign governments to
wide range of public and private
develop their own protective
stakeholders; involve regulated
security capability.
industries in the development and
implementation of security planning;
10.18 FCO travel advice, informed by
and continue to provide professional
JTAC assessments, is the primary platform
expertise on protective security.
for raising awareness of the terrorist threat
to British citizens travelling and living • The long-established presumption
abroad. The FCO launched a new travel that the ‘user pays’: costs of
advice website162 in March 2008. protecting the public will continue to
be borne only by those parts of society
10.19 Developing capacity building that benefit from the service (eg gas
projects for countries overseas is as vital consumers, airline travellers and
in this workstream as it is for our Pursue football fans).
and Prevent work. Assistance worth £4.7
million was approved in 2008 and focused 10.23 Protect objectives over this three-
on aviation and maritime security. year period will include a reduction in the
vulnerability of:
Protect: The current approach
• critical national infrastructure
Key principles • crowded places
10.20 Following the incidents in London • aviation, rail and maritime transport
and Glasgow in June 2007, the Prime
• border security.
Minister asked Lord West, Parliamentary
Under-Secretary for Security and Counter
A new objective will be to improve the
Terrorism at the Home Office, to review
security of hazardous substances which
further measures necessary to protect
may be used by terrorists to conduct
against terrorist attacks on crowded
an attack.
places, transport infrastructure and
the critical national infrastructure and
to consider how to protect the public
from terrorist access to hazardous
substances.
Part 2 Protect programmes • The principle of ‘user pays’ is already
applied to some crowded places:
Section 10 Critical national infrastructure football stadia and nightclub owners
are responsible for meeting security
10.24 Government Departments,
costs at their sites. The consultation
supported by CPNI, will continue working
on the guidance ‘Working together
closely with operators in all the sectors to
to protect crowded places’ will seek
improve security awareness and practices
further views on how best to apply
and to mitigate significant vulnerabilities.
this principle more widely.
Key programmes include:
• Delivery of an extensive programme Transport systems and their users
of security enhancements at critical
10.26 The Government will continue to
energy sites working with operators
enhance the security of the transport
such as National Grid.
sector in the UK:
• Security enhancements across the
• DfT is collaborating with industry
water sector to improve physical
and police stakeholders on a new
security at critical sites and prevent
regulatory framework for taking robust
malicious access to the water
and accountable risk-based decisions
network163.
at airports that will ensure effective
• A programme of security reviews and security and joint working, particularly
advice by CPNI to critical infrastructure between industry and the police.
in the finance, communications and Proposed legislation is being taken
emergency services sectors. forward in the Policing and Crime Bill.
• Work to understand and mitigate • Taking forward the recommendations
vulnerabilities in systems controlling of the independent review of personnel
infrastructure processes. security (paragraph 10.16 above)
DfT is considering a mandatory
Crowded places requirement for overseas criminal
record checks for those posts
10.25 The Government is taking forward
which present the highest risks,
the following priorities for protecting
notably those with specific security
crowded places:
responsibilities which are already
• The Government and NaCTSO have subject to a counter-terrorism check.
developed a new standard risk DfT will enhance the personnel
framework to enable national, regional security elements of current training
and local partners to identify the programmes and develop the capacity
highest risk crowded places around of industry partners to carry out risk
the UK. CTSAs are currently applying assessments.
this new framework in conjunction with
• Multi-agency port security authorities
public and private sector partners.
are being established to undertake
OSCT will shortly issue new guidance
joint agency threat and risk
on ‘Working together to protect
assessments at sea ports similar to
crowded places’.
those carried out at airports.
• To encourage architects and planners
to take into account the risks of a UK border security
terrorist attack when designing major
10.27 The National Identity Scheme will
new developments for crowded places,
make it more difficult for people to cross
recommended by Patrick Mercer MP
the UK border under a false identity by
in his contribution to the review of the
providing second-biometric passports and
protective security of crowded places,
identity cards (see ‘Identity cards and
the Government will consult on new
counter-terrorism’, page 114).
planning guidance with advice on how
to ‘design in’ improved protection
against terrorist attack.

Part 2 10.28 UKBA will continue to extend
the e-Borders programme to check
• enhance counter-terrorism awareness
for all front-line staff.
Section 10 international air, maritime and rail
passengers and crew against watchlists 10.31 The Green Paper, From the
in advance of travel. This means that Neighbourhood to the National: Policing
people known to pose a threat or most our Communities Together 164, issued by
likely to pose a risk can be stopped the Home Office in July 2008 included
from travelling or from entering the proposals for enhancing policing at
country if required. The e-Borders will the border. A number of options were
check over 95% of all passenger and presented and comments on these
crew movements (including UK and EEA and variations on them were submitted
citizens) by the end of 2010. The new in response.
e-Borders National Border Targeting
Centre in Manchester will become fully 10.32 In light of comments received, the
operational by October 2009. Analysts Home Office, in conjunction with ACPO
from the police, SOCA and UKBA will and as a priority, will seek a significant
share information and intelligence, and enhancement of the existing collaborative
process alerts generated by checks arrangements between police forces, and
against watchlists. This will allow the between the police and the UKBA, and
border security agencies to focus their will agree a set of practical proposals for
resources on passengers who are improvements. These proposals will build
suspected criminals or have broken on the changes announced in April 2008
immigration rules and allow the vast to develop closer working arrangements
majority of passengers to cross the between the police and UKBA (see
border more quickly. paragraph 10.11); the investment in
technology through the e-Borders
10.29 UKBA is continuing to develop and and biometric visas programmes; and
embed counter-terrorism improvements the further development of counter-
in its visa operations and in the Border terrorism policing.
Force, by:
10.33 Other initiatives for strengthening
• ensuring all visa applicants and
police and immigration work at the
arrivals are checked against counter-
borders include:
terrorism watchlists
• Changes to the Common Travel
• robust procedures to identify and refer
Area (which includes the Republic
to police and security and intelligence
of Ireland, the Channel Islands and
agencies applicants or travellers who
the Isle of Man) are planned with the
might present a terrorist threat
introduction of risk-based intelligence-
• rolling out the Cyclamen radiological led immigration controls, using the
screening programme at UK ports and e-Borders system, on routes between
airports (see Section Twelve, page the UK and the Republic of Ireland.
129), and
• Developing a memorandum of
• counter-terrorism awareness training understanding for deeper collaboration
and information packages to all front- between ACPOS and the UKBA
line staff delivered in cooperation with at ports and airports in Scotland,
the security and intelligence agencies. establishing principles for closer
working and setting strategic direction
10.30 UKBA is also implementing a for intelligence sharing and delivery of
programme within in-country immigration, front-line operations.
asylum and citizenship processes to:
• Developing plans with our closest EU
• improve capability to detect and refer neighbours in Northern Europe for
to the relevant authorities individuals our police to use their own counter-
who potentially pose a terrorist threat terrorism powers at the ports where
as they are encountered within UKBA there is most traffic to and from
processes, and the UK.
Part 2 • New police powers to collect advance
passenger data on some domestic
Section 10 air and sea journeys and international
freight movements are currently
planned and subject to consultation.
Announcements on these powers will
be made during the course of 2009.
Personnel security
10.34 The Government will progress
work on personnel security by:
• producing further good practice
guidance, informed by research
and development led by CPNI in
partnership with industry, on issues
such as ongoing personnel security
and security culture
• considering the applicability of the
conclusions and recommendations in
the independent review of personnel
security across the transport sector
to other sectors in the national
infrastructure, and
• continued training and advice to
national infrastructure organisations in
order to raise awareness and improve
personnel security standards.

Identity cards and counter-terrorism
Terrorists aim to operate in secret, accuracy and security of the identity

concealing their intentions and their register and on the uses to which identity
activities. They often need to disguise cards are put.
their real identity, for example when
they are travelling. They therefore make The NIS will store a person’s biographic
regular use of false or stolen papers information and unique facial and
and passports. fingerprint biometrics on a National
Identity Register (NIR). This biographic
It is a key part of our counter-terrorism and biometric information will also
work, and that of our international be stored in a chip on that person’s
partners, to develop systems and identity card.
procedures which make it harder for
terrorists to acquire and use false papers The first identity cards were issued in
and passports and to maintain false November 2008 to foreign nationals
identities. This was one of the main applying to extend their stay in the UK on
recommendations made by the official student, marriage or spouse grounds. All
US enquiry into the attack by Al Qa‘ida new entrants to this country and those
on the US on 11 September 2001165. extending their stay will have a card within
three years and it is estimated that by the
Biometric technology enables us to take end of 2014/15 about 90% of all foreign
a digital image of an individual’s unique nationals living in this country will have an
fingerprint or iris, to store that image identity card.
in a passport, visa or other document,
and then to ‘read’ or scan it when the “Of all the pre-employment screening
document is presented as proof of checks, identity verification is the
identity. Biometrics can very significantly most fundamental.”
reduce the ability of terrorists to use
CPNI’s Good Practice Guide on
false papers and identities.
Pre-Employment Screening
available at www.cpni.gov.uk/Docs/Good_
We have already introduced biometrics
practice_guide_-_Pre-employment_screening_
into our visa system to ensure that the
edn2.pdf
visa is used by the person to whom it was
issued and that the biometrics for that
From 2009, initially for an 18-month
person are not already held in criminal
evaluation period, the Identity and
indices here, perhaps in conjunction with
Passport Service will begin rolling out
another name (paragraph 10.11 above).
identity cards to critical workers in
sensitive roles or locations, beginning
The National Identity Scheme (NIS), plans
with airport staff working airside.
which were published in March 2008, will
The independent review of transport
extend the use of biometrics by creating
personnel security (see paragraph
an identity register and identity cards.
10.16) emphasised that identity is a key
It is not our intention that identity cards
factor in personnel security regimes and
should be mandatory for UK nationals.
concluded that identity cards are a useful
addition to identity assurance.
During 2009 a new statutory independent
regulator, the National Identity Scheme
Identity cards will provide employers
Commissioner, will be appointed. The
equipped with biometric card readers
Commissioner will oversee the operation
with a flexible and reliable means of
of the NIS and report annually on the
verifying the identity of their staff. At
airports, for instance, the identity card
will provide airport operators with a
single, consistent, robust and verifiable
form of identity replacing the wide
range of passports and other photo
documentation with which airport
operators are currently provided. The NIS
will help ensure all those using airports
are confident about their safety.
From 2010, identity cards will be issued

on a voluntary basis to young people
to assist them in proving their identity.
From 2011/12, the Scheme will start to
enrol people at high volumes, offering
them a choice between an identity card,
a passport or both. From 2012, passport
renewals will require enrolling facial and
fingerprint biometrics on the NIR.
Counter-terrorism investigators in EU
member states which have identity
cards regard them as an integral part
of all counter-terrorism and criminal
investigations. Identity cards and the
data they hold authenticate an identity
and enable investigations to progress
more quickly.
Identity cards do not provide a single

solution to terrorism and the Government
is not proposing their introduction
primarily for counter-terrorist related
reasons. But they do provide a valuable
tool for authenticating identity and for
that reason support counter-terrorist
investigations.

Part 2 CBRNE hazardous sites and substances chemical, biological, radiological and
explosive substances.
10.35 This is a new objective, following
Section 10 a review in early 2008 of what more could
10.39 JTAC constantly reviews the
be done to improve the security of legally
threat of international terrorism so that
held chemical, biological, radiological
Government can advise UK citizens
and explosive substances, and the
travelling and living abroad. The
facilities where they are stored. This work
Government will continue to help UK
reflects our assessment in Part One of
citizens understand threat levels and
this strategy of the challenge posed by
learn how to minimise risk.
new technology coming into the hands of
terrorists (see paragraphs 5.13 and 6.05).
Protect: future challenges
10.36 Building upon these existing
• Part One of this strategy argued
initiatives, OSCT together with CPNI,
that technology will continue
NaCTSO and BERR are delivering
to facilitate terrorism, enabling
against an action plan for enhancing
terrorists to better plan operations
the safeguards for these substances.
and to use techniques which may
This includes taking forward work to
have more lethal effects. The main
reduce the accessibility of high-risk
challenge for our Protect strategy is
substances, awareness-raising measures
to take account of these possible
for specific sectors (such as the academic
developments.
community), and action to address
identified gaps in our regulatory regime: • This will require a sophisticated
more information on this work is included and well-informed risk-assessment
in Section Twelve. capability to make the best-informed
decisions about how to prioritise
Individuals at risk of being targeted by resources to protect the public. Our
terrorists understanding of those risks will need
to be shared with those responsible
10.37 The UK has long-established
for sites and public safety. The
procedures for protecting high profile
Government will need to strike the
individuals at risk of being targeted by
balance between the familiar ‘need
terrorists. Protective security measures
to know’ and the ever more important
can include armed personal protection
‘requirement to share’.
officers, static armed policing, technical
measures, and advice on best practice. • The Government will also need to
improve its engagement with industry
Priorities include: and wider stakeholders on future
requirements for research and
• Staying ahead of any emerging threats
technology to ensure the protective
and responding quickly and effectively
security capabilities are developed
to any changes.
which address the evolving threat (see
• Delivering technical, protective Section Fourteen, page 147).
security measures and advice which
• The Government will continue to
reflects best practice and the latest
monitor and assess the risk of ‘cyber
technological capabilities.
terrorism’ – an electronic attack by
terrorists on our information and
UK interests overseas including the
communications infrastructure.
public and business community
Currently that threat is not assessed
10.38 The Government will continue to be great. But this may change.
with Protect-related capability building
• In a more challenging economic climate
projects overseas, including projects to
the Government will need to secure
build capabilities in aviation and maritime
continued commitment from the private
security, border security, crowded places
sector to invest in protective security
and to protect against terrorists using
measures; this will put a premium on
Part 2 ensuring that business operators,
planners, architects and designers
Section 10 think in terms of ‘designing out’
vulnerabilities.
• The UK border will remain
critical to our security.
Enhancing technical systems
to track incoming and outgoing
movements; and upgrading
our programme to identify
radiological substances will both
be very challenging in their own
right. Enhancing collaborative
arrangements at the border
between police forces, and
between the police and the
UKBA, and delivering a coherent
programme of counter-terrorism
improvement across the whole
of the diverse UKBA business,
will all be vital.
• Striking and maintaining the right
balance between effective border
security and protecting personal
data about passengers will remain
a priority. Over the next 10 years
a further challenge for Government
will be to focus the resources of
the border security agencies on
the minority of passengers who
pose a threat or are a potential
risk to the public, and to enable
the vast majority of passengers
to complete their journeys with
minimal disruption.
Identity cards and counter-terrorism Page 117

Part 2 Prepare: mitigating the impact of attacks
Section 11
Summary
The Prepare workstream aims to mitigate the impact

of a terrorist attack where it cannot be stopped. This
includes work to manage an ongoing attack and to
recover from its aftermath.
Since 2004 the Government has put in place capabilities to deal with a range of
emergencies, of which terrorism is one. Organisations have been established (notably
local and regional resilience networks) and capabilities improved. This resilience work
has absorbed important lessons from the 2005 London bombings. These capabilities
reflect the types of terrorism attack we judge to be most likely in this country. These
are identified in a National Risk Assessment.
Capabilities to respond to a terrorist attack have been enhanced by the new Police
Counter-Terrorism Network, by joint programmes between policing and the Armed
Forces, and by exercises to ensure all these capabilities are effective.
Specific and dedicated capabilities have been put in place in the emergency services
to manage the terrorist use of chemical, biological and radiological materials.
The objectives of the Prepare workstream will be to ensure:

• capabilities are in place to deal with a range of terrorist incidents
• there is continuity or swift recovery in our critical national infrastructure following
terrorist incidents
• central, regional and local crisis management structures are appropriately equipped,
competent and trained.
The Government will also conduct further planning to manage the consequences of
the UK’s highest impact terrorism threats as set out in the National Risk Assessment.
These include the use of unconventional techniques (eg chemical, biological and
radiological materials).
Many of the capabilities relevant for Prepare are also available to deal with the
consequences of other threats and hazards. For example, the local government
resilience network is configured to deal with the consequences of other local
emergencies as well as the impact of an act of terrorism.
Departments and Agencies are currently considering the implications of the recent
Mumbai attacks for our Prepare strategy.
Part 2 Prepare: mitigating the impact of attacks
Section 11
Prepare: key achievements • Assessment of the potential

consequences of an attack, set
11.01 The aim of the Prepare out in National Resilience Planning
workstream is to mitigate the impact Assumptions.
of a terrorist attack where it cannot be
• Development of a Resilience
stopped. This includes work to manage
Capabilities Programme to provide the
an ongoing attack and to recover from its
basis for specific contingency planning
aftermath. Prepare ensures that lives are
to deal with the terrorist threats which
saved, fewer injuries sustained, that the
pose the highest risk to the UK.
impact on the economy, property and the
environment is minimised and normality • Enhancing business continuity
restored as soon as possible. management in essential services
to ensure continuity or recovery as
11.02 The Home Office is the lead quickly as possible following a
department, and the Home Secretary terrorist attack.
the lead UK Minister, for ensuring that
• Developing crisis management
this country is well prepared in the event
capabilities to ensure those with
of a terrorist attack, or other terrorist-
leadership roles in an emergency,
related crisis. The Home Office also has
including in the emergency services
specific responsibility for ensuring that
and local authorities, have the skills
capabilities are in place to deal with
and expertise to respond effectively.
a chemical, biological or radiological
incident. The police service has a dual
11.05 The work to build national
role as emergency responder dealing
resilience and implement the Prepare
with the incident and its consequences
strategy has delivered a number of
and as a law enforcement agency dealing
significant achievements:
with the criminal investigation. Other
emergency services and the military may • The NRA assesses both the impact
be required in a supporting role. and likelihood of a range of possible
terrorist attacks against the UK. This
11.03 The resilience component of data has been compiled in association
the Prepare workstream is one part with JTAC and the Security Service.
of the much larger national Resilience
• Since 2004, a cross-Government
Programme which includes planning for
programme based on the NRA has
natural hazards and major accidents. The
put in place more effective nationwide
Resilience Programme is led by the Civil
capabilities to respond to a range of
Contingencies Secretariat (CCS), created
foreseeable emergencies, including
within the Cabinet Office in response
terrorist attacks.
to lessons learned from the major
emergencies of 2000 (serious flooding • The 2004 Civil Contingencies Act
and the Fuel Crisis) and 2001 (the Foot- and its associated non-legislative
and-Mouth Disease outbreak). measures provided the basis for our
response to all emergencies, notably
11.04 Our earlier CONTEST Strategy new multi-agency partnerships at local
work had five Prepare objectives: and regional levels (Local Resilience
Forums and Regional Resilience
• Identification of the potential risks the
Forums respectively). The Act set
UK faces from terrorist threats, through
out the duty of the responders in
a National Risk Assessment (NRA).

Part 2 these partnerships to assess risks in
their areas and to prepare, test and
11.09 The Government works with
the police, the security and intelligence
Section 11 exercise plans to deal with those risks. agencies and the Armed Forces to devise,
maintain and regularly exercise those
• Professional competence has
capabilities and responses which would
been developed through National
be used in the event of an imminent
Occupational Standards for those in
terrorist incident. The National Counter-
the emergency planning profession,
Terrorism Exercise Programme improves
the British Standard for Business
the abilities of the police service and
Continuity and Disaster Recovery166
other key stakeholders to prepare
and Central Government Emergency
for, respond to, and manage terrorist
Response Training for individuals with
investigations and incidents. Overseen
roles in crisis management at the
by a Programme Board chaired by OSCT
national strategic level167.
and comprising key stakeholders, the
• Progress has been made in providing programme delivers three national-level
capabilities for responding to a live-play exercises annually. An ACPO-led
chemical, biological or radiological Lessons Development Group monitors
attack. This is set out in Section the implementation of lessons and issues
Twelve of this strategy (see paragraph arising from the exercises.
12.22).
11.10 Foreign partners are invited
Responding to a terrorist attack to observe and take part in counter-
terrorism exercises where the simulated
11.06 The Home Office works with the
incident affects the UK and other
Cabinet Office in convening and running
countries, for example an attack on
the COBR to provide strategic direction
shipping in the Channel or in the Channel
of the Government response to ongoing
Tunnel. The FCO, as part of its capacity
terrorist incidents. The national Police
building programme, provides support
Counter-Terrorism Network (see paragraph
to key international partners aimed at
8.10) has become the basis for the
minimising the impact of any terrorist
policing response to terrorist attacks.
incident in their country likely also to
affect British nationals overseas and
11.07 ACPO’s Terrorism and Allied
the UK.
Matters Business Area (TAM) has
nominated a Prepare National Coordinator
Managing the consequences of a
to support the police service in developing
terrorist attack: Lessons learned from
the counter-terrorism policing capability
7 July 2005
to provide a comprehensive and
coordinated policing response which 11.11 Preparedness work has absorbed
manages the consequences of a lessons from the London bombings,
terrorist attack alongside an effective including providing better support to
investigative response. the bereaved and survivors, timely
information to the public and more
11.08 Where intelligence indicates resilient telecommunications capabilities
that a terrorist attack is imminent the between responders.
Government possesses the capability to
intervene by air, sea or land to disrupt 11.12 Drawing on lessons identified
it. The MOD has developed niche in the response to the bombings, in
capabilities which can be deployed in September 2005, the Cabinet Office
support of the police if required, including issued updated guidance to all emergency
specialist counter-terrorism capabilities in responders, ‘Emergency Response
the land, maritime and air environments. and Recovery’168, on the management
Procedures for using military resources of emergencies. It included guidance
in support of police counter-terrorism on setting up and publicising family
operations have been developed assistance centres and on the role of
and rehearsed. Family Liaison Officers.
Part 2 11.13 In 2007 the Department of Health
produced guidance on planning for mass
• the UK critical national infrastructure
continues to deliver essential services
Section 11 casualty incidents169 which emphasised following a terrorist incident; or, where
that hospitals, in association with the services are disrupted, recovers as
police, should establish mechanisms for quickly as possible
getting information out quickly to those
• central, regional and local crisis
affected by any emergency.
management structures are
appropriately equipped, competent
11.14 Police casualty bureau
and trained, and
arrangements have undergone a
thorough review since July 2005 and new • plans are developed and capabilities
procedures, systems and training have improved to respond to a terrorist
been put in place. The new ‘National incident and to deal with the
Mutual Aid Telephony System’ and mutual consequences of the UK’s highest
aid telephony protocols between police impact terrorism threats as set out in
forces will enable a future casualty the NRA.
bureau to handle more calls than was the
case on 7 July. 11.18 The Prepare workstream will
continue to be based on the annual
11.15 New plans have been put in place NRA, setting out the highest risks to the
for incidents that result in mass fatalities; UK over the next five years, and on the
other initiatives have enhanced resilience National Resilience Planning Assumptions
in responders’ telecommunications which set out the potential consequences
systems. London Underground has of the full range of risks and the planning
introduced a £2 billion resilient digital required to deal with them. Improved
radio system across the whole of its capability to respond to the highest
network. Known as ‘Connect’ it serves impact threats identified in NRA will
both London Underground and BTP staff, increase the capability to respond to
enables communication between above lower order risks, most of which pose
and below ground, and is interoperable similar challenges on a lesser scale.
with the emergency services ‘Airwave’
digital radio system. 11.19 The Prepare objectives and
the NRA reflect the greater emerging
11.16 In an emergency, the rapid threats posed by terrorism as set out in
distribution of clear and accurate Section Five and Six of this strategy (on
information to the public is essential. the strategic factors affecting terrorism
Clear information relieves public and the planning assumptions we are
anxiety, helps the public to take steps making for the next three years). Some of
to protect themselves from danger and these threats go beyond current counter-
inconvenience, assists responders, terrorism capabilities and our Prepare
and supports the subsequent criminal planning will be adapted accordingly.
investigation. Communications strategies
have been developed to better ensure 11.20 The roles and responsibilities
the right information can reach the right for Prepare are unchanged. In the Home
people at the right time. Office, OSCT is responsible for oversight
of the management of an ongoing
Prepare: The current approach terrorist incident in close coordination
with the Cabinet Office, through the COBR
Key principles mechanism. OSCT is also responsible
for continued development of capabilities
11.17 The four objectives of the current
to respond to a CBRN incident and
Prepare strategy are to ensure that:
for working with the police to test and
• capabilities are in place to enable maintain their overall preparedness for
emergency services to respond a terrorist incident. And OSCT is tasked
effectively to most kinds of terrorist to collaborate with the MOD to ensure
attack, both during and after any that military assets are available in the
incident event of a terrorist incident. The dual role

Part 2 of the police as emergency responder
and lead investigator continues. The
updated privileged access schemes for
mobile and fixed telecommunications
Section 11 military will continue to provide supporting systems, and a national resilience
capabilities when required. Overseas extranet providing a web-based
the FCO provides consular assistance to planning and crisis management tool
British nationals affected by terrorism and for responders, and
coordinates capacity building.
• develop the concept of community
resilience, as described in the
11.21 CCS continues to coordinate
National Security Strategy170, enabling
overall delivery of work by the
communities to enhance their own
Government and other stakeholders
safety by putting in place their own
on resilience planning.
emergency plans for all kinds of risks,
including natural hazards and terrorist
11.22 There are two measures of
incidents – for their village, ward or
success for our Prepare work:
estate. Local groups and networks can
• Capabilities for Major Emergencies: identify people who may be vulnerable;
the Government will continue to ensure local places of safety; transport and
that by 2010/11 all or most of the equipment; and those with first
capabilities will be in place to enable aid training.
responders across the country to
effectively handle major emergencies. 11.24 OSCT will lead work to:
• Capabilities for Catastrophic • review the National Counter-Terrorism
Emergencies: the Government will Exercise Programme to ensure that it
continue to build the capabilities to fully reflects requirements to disrupt
respond to catastrophic risks, defined an imminent terrorist attack by air,
as those with the very highest impact land or sea, and
in terms of loss of life and disruption
• ensure that counter-terrorism
to the social fabric and the economy.
capabilities and the procedures for
their use are developed coherently
Prepare programmes
with existing procedures for Military
Aid to the Civil Authorities171.
Build capabilities
11.23 The CCS will lead work to: 11.25 The police have a key role
in preparing for the immediate and
• improve the capability of emergency
sustained response to an ongoing
responders to deal with casualties
attack, and also in managing the
and fatalities arising from most kinds
return to normality including any
of terrorist attacks; ensure that
subsequent investigation.
every local area has in place a multi-
agency plan for the recovery phase
of emergencies; and expand capacity
for evacuation and shelter, including
improved arrangements for mutual aid
and humanitarian assistance at local
and regional level
• complete the full roll-out over the next
two years of the CBRN preparedness
programme to equip 18 centres
nationwide with staff and facilities to
improve multi-agency response to a
CBRN attack (see paragraph 12.22)
• continue building the resilience
of emergency responders’
telecommunications systems through
Implications of the Mumbai attacks
On 26 November 2008 10 terrorists The initial response to any terrorist

working in pairs struck at the heart of incident will be managed by the police
India’s financial capital and largest city service but there are tried and tested
with automatic weapons, grenades and arrangements for providing military
IEDs. Using a novel mixture of tactics support to the police in a range of
combining ‘hit and run’ attacks with areas where it might be required. Bomb
‘seize and hold’ hostage taking, they disposal teams and advanced search and
attacked various locations in the city survey teams are used to support police
simultaneously including two hotels, a forces regularly throughout the year.
railway station, a hospital and a café. Other specialist capabilities, including
The attacks were carefully planned and Special Forces, are held at high readiness
the terrorists well trained and equipped. and regularly exercise their response to
When their three-day assault was ended potential threats and incidents.
at least 160 people had been killed and
over 300 injured.
Agencies and Departments have

begun to look at the implications of
Mumbai for the protection of people
and critical infrastructure and for our
response capability.
Following the Mumbai attacks NaCTSO

accelerated the roll-out of its protective
security guidance for hotels and
restaurants172. Project ARGUS training
exercises have been developed by
NaCTSO for night-time economy
businesses, airport and railway terminals
and one will be developed for the hotel
sector. ARGUS uses a simulated terrorist
attack to prompt discussion to identify
the measures service providers can take
to prevent, handle and recover from a
terrorist attack.

Part 2 11.26 ACPO will lead work to: implementing recommendations
of recent crisis incident reviews for
• develop police capacity and capability
Section 11 to respond to the scale of the evolving
regional tiers of crisis management
and completing the roll-out of a
threat
standardised peer review system
• improve interoperability between police for local resilience forums
and other emergency responders
• build better logistics support
• broaden police counter-terrorism capabilities at local, regional and
training and exercises to identify national levels, addressing a gap
lessons learned and improve identified last summer and the
organisational learning and subject of recommendation made by
development, and Sir Michael Pitt in his independent
review174 of the flooding emergency
• embed police work in wider UK
that took place in June and July
planning and resilience programmes.
2007. These capabilities apply to the
full range of emergencies, including
11.27 FCO will lead work to ensure
terrorist emergencies, that can disrupt
British nationals caught up in terrorist
critical public services, and
incidents overseas receive effective
consular assistance, and provide support • develop a new high integrity
to increase the capacity of priority telecommunications system providing
countries to manage the consequences communications between all levels
of terrorist incidents. of local, regional and national crisis
coordination structures, which will be
Improve CNI preparedness piloted in 2009.
11.28 The CCS, together with CPNI,
Improve capabilities to deal with highest
will support and encourage CNI sectors
impact threats
to adopt effective business continuity
management planning which also 11.30 The CCS, OSCT and others will:
addresses a wider range of threats
• build capacity over and above that
and hazards, and to ensure resilient
needed for most terrorist incidents to
telecommunications, particularly at
improve the response to catastrophic
critical energy sites.
emergencies: those threats –
mainly CBRN-related – may present
Maintain crisis management structures
challenges beyond those posed by
11.29 The CCS will: current terrorist capabilities. Our
Prepare planning will be adapted
• undertake, in 2009, a Civil
accordingly, and
Contingencies Act Enhancement
Programme to assess the impact of • work with international partners
its provisions; draw from experience to agree arrangements for sharing
over the past three years; define and capabilities in the event of a
provide a set of minimum standards terrorist incident.
and performance targets for the
higher-performing organisations; and to Prepare: future challenges
raise standards of resilience activities
over three years. Commitment to • Changing terrorist tactics and access
this review was given in the National by terrorists to new technologies
Security Strategy173 pose as great a challenge to our
Prepare work as they do for Protect.
• improve central, regional and
But the challenges are different. For
local crisis response structures,
Protect the challenge is to evolve our
upgrading national facilities in COBR
protective security and to harden
and alternative government crisis
potential terrorist targets; for Prepare
management headquarters,
the challenge is to develop contingency
Part 2 plans in the events that a terrorist
incident occurs which may make use
Section 11 of new technologies and techniques.
• Specific contingency planning will need
to address the threat from CBRN,
using improved capacity to model and
predict potential impacts.
• As in other CONTEST workstreams,
success here will depend on the
sharing of information with a wide
range of stakeholders including Local
and Regional Resilience Forums, the
Wales Resilience Forum, Strategic
Coordinating Groups in Scotland, the
public sector resilience community;
with the broader community of
partners in the private and voluntary
sectors; with small and medium-sized
enterprises whose resilience
is valuable to communities, and with
the public, building on the National
Risk Register175.
• Learning from counter-terrorism
exercises, from real life operations,
HM Inspectorate of Constabulary
inspection reports and other sources
needs to be integrated to improve the
operational response of the police and
other agencies to terrorist incidents and
to inform wider policy and programme
development. OSCT and ACPO (TAM)
have already begun to address this with
proposals to develop a more systematic
approach to organisational learning.

Part 2 hemical, biological, radiological and nuclear
C
Section 12 weapons and explosives (cbrne)
Summary
Contemporary terrorist organisations aspire to use

chemical, biological, radiological and even nuclear
weapons. Changing technology and the theft and
smuggling of CBRNE materials make this aspiration
more realistic than it may have been in the
recent past.
Terrorists have also developed new types of explosives and new ways of using
them. Technology has developed in conflict areas overseas and is rapidly shared by
terrorist organisations around the world.
Within CONTEST a multi-agency strategy has been developed to respond to these

threats. The UK cooperates closely in these areas with the US and with other allies.
Our strategy is built around programmes under each of the four main CONTEST
workstreams. The intelligence services have a major role to play in Pursue aspects
of CBRNE work. We will need to reflect the CBRNE threat in the Prevent-related
work we do to challenge the ideology behind violent extremism and, specifically, the
legitimacy it claims for mass murder; major Protect-related programmes include the
provision of radiological detection systems at ports of entry to the UK, safeguarding
CBRNE materials and ensuring the security of the civil nuclear sector. Preparing for
a CBRNE attack has been a key feature of our broader preparedness work.
These programmes will continue, informed by a comprehensive review of cross-

Government CBRNE activity due for completion in early 2009 and by an extensive
programme of scientific research.
Part 2 hemical, biological, radiological and nuclear
C
Section 12 weapons and explosives (cbrne)
CBRNE: key achievements and current 12.04 But Al Qa‘ida is the first
approach transnational organisation to support the
use of CBRN weapons against civilian
12.01 This section considers the specific targets and to try to acquire them. That
challenge of terrorist use of chemical, interest reflects their broader wish to
biological, radiological and nuclear cause mass casualties, often using
(CBRN) weapons and of explosives (E). suicide attacks. In an interview with
This threat is addressed in part through Al Jazeera in 1998, Usama bin Laden,
the main CONTEST workstreams. But when asked if it was true that he was
the scale and complexity of the threat attempting to acquire nuclear weapons,
means that the Government has brought said “…there is a duty on Muslims to
its response together in one CBRNE acquire them, and America knows today
cross-cutting workstream and strategy, that Muslims are in possession of such a
led by OSCT. This ensures that separate weapon, by the grace of God Almighty”176.
initiatives under Pursue, Prevent, Protect
and Prepare are coherent, coordinated 12.05 Al Qa‘ida established facilities
and together address the threat. in Afghanistan during the rule of the
Taliban to research chemical, biological
12.02 A wide range of stakeholders and radiological weapons and training in
are involved in forming and delivering the use of contact poisons was provided
policy in this area, including: Government to large numbers of Al Qa‘ida members.
Departments and agencies; Devolved In 2001 Al Qa‘ida held talks with two
Administrations; emergency services; disaffected Pakistani nuclear scientists
local emergency planners; utilities and about acquiring or developing radiological
the private sector. This workstream also weapons177. By 2003 Al Qa‘ida had
connects with other Government policies developed a device to produce hydrogen
including, for example, work on counter- cyanide gas, intended for use in crowded
proliferation led by FCO and supported urban spaces178. In 2004 Al Qa‘ida
by MOD and Department of Energy and associated cells in the UK considered
Climate Change (DECC), which leads on the use of radiological devices179 and
nuclear safety elements. in 2006 the leader of Al Qa‘ida in Iraq
appealed for nuclear scientists to join
The CBRN threat his group and to attack US bases in Iraq
using non-conventional weapons180. In
12.03 Al Qa‘ida is not the only terrorist
2007 Al Qa‘ida in Iraq deployed a number
organisation which has tried to develop
of explosive devices utilising chlorine
CBRN weapons. Between 1993 and
gas cylinders181.
1995, the Japanese cult organisation
Aum Shinrikyo tried to manufacture nerve
12.06 The evolution of the Al Qa‘ida’s
agents, including sarin and VX, and
CBRN weapons capability, and of
biological agents, including anthrax and
intelligence about it, was described in
botulinum toxin. In 1995 Aum members
some detail in the Review of Intelligence
released sarin on the Tokyo metro killing
on Weapons of Mass Destruction
12 people. Shortly after Aum also tried
conducted by a committee of Privy
to release cyanide gas in a key
Counsellors chaired by Lord Butler, in July
Tokyo station.
2004. That review quoted extensively
from Joint Intelligence Committee (JIC)
conclusions about these programmes
and noted that many JIC judgements

Part 2 were confirmed by discoveries made in
Afghanistan after the fall of the Taliban182.
12.10 Section Five of this strategy
noted that the technology of IEDs has
Section 12 evolved rapidly in a series of conflicts
12.07 Three other factors have over the last 15 years. Al Qa‘ida, its
increased the risk that terrorists may affiliates and groups inspired by Al Qa‘ida
acquire CBRN weapons: have demonstrated intent to experiment
with novel explosives to maximise
• There has been a significant increase
their capability and, in some cases,
in the trafficking of material which
to deliberately circumvent protective
can be used in radiological weapons
security measures. The Government
as well as potentially in nuclear
needs to constantly update and improve
weapons. This is a relatively recent
understanding of and ability to detect
phenomenon directly related to the
explosive compounds of all kinds. Section
end of the Soviet Union. Since 1993
Five of this strategy also outlined the
the International Atomic Energy Agency
development of the suicide attacks.
(IAEA) has recorded over 1,300
These have also led to new defensive
incidents of smuggling, theft, loss,
security requirements and counter
illegal disposal and possession, and
measures.
sales or attempted sales of nuclear or
radioactive materials183.
Pursue
• The internet has made information
widely available on the technology of
agencies have a key role to play in this
CBRN devices and the materials which
area. Intelligence (supported by forensic
might be used to develop them.
techniques) provides an early indication
• CBRN materials can be used for that a terrorist organisation is developing
legitimate purposes, notably in nuclear or deploying a new CBRNE capability;
energy, medical science and bio- that CBRNE-related material or designs
technology, and the production and are being traded and sold; or that the
use of these materials significantly security of a national chemical,
increases the risk that they may be biological or nuclear programme has
used by terrorist organisations. been compromised.
12.08 There remains the further risk 12.12 Intelligence not only enables the
that the deliberate or unwitting release disruption of a specific threat but also
of information from state programmes informs and improves the effect of the
reaches terrorists and terrorist groups. interventions made under the Protect and
The activities of the AQ Khan proliferation Prepare workstreams.
network highlighted the damage that
compromise of this kind can cause Prevent
(although there is no evidence that AQ
12.13 The ideology of Al Qa‘ida (and
Khan talked directly to any terrorist
organisations associated with it) has
organisation184).
sought to justify the use of weapons
which can cause very large numbers of
The changing threat from explosives
civilian casualties. As part of our CBRNE
12.09 Alongside the potential threat work and in conjunction with other
from CBRN, there have been significant Prevent initiatives, we need to be able
developments in the more traditional to challenge that justification. This is not
threat to the UK and to UK interests something which Government can do on
overseas from IEDs – in particular, the use its own; as for all of our Prevent work the
of novel home-made explosives and the key role will be played by communities
detonation of devices by suicide bombers. and, in this case, also by scholars of
Islam who are best able to demonstrate
the flaws in Al Qa‘ida’s argumentation.
Part 2 Protect the Missile Technology Control Regime
and the Nuclear Suppliers Group.
12.14 Our aim here is to deny terrorist
Section 12 access to CBRNE materials, whether
12.18 The Cyclamen Programme
produced and stored in the UK legally
was established in 2002 as a joint
or imported (legally or illegally), and to
programme between the Home Office
screen for CBRNE materials entering
and the former HM Customs & Excise
protected areas, for example at airports.
to deter or detect the illicit importation
Work with European and other partners
of radiological materials into the UK that
is particularly important. Tighter controls
could be used for terrorist purposes.
on the movement of CBRNE materials
Cyclamen involves the development and
in Europe and beyond reduce their
roll-out of a suite of radiological detection
availability to terrorists, directly increasing
systems at ports of entry to the UK, now
UK security. European standards are
operated by UKBA. An initial set of fixed
being developed for explosives screening
detection portals was installed in 2004,
in commercial aviation, building on the
ahead of time and under budget.
measures initiated by the UK and put in
place for liquids in August 2006, which
12.19 Substances with legitimate
seek both to improve explosive detection
industrial or domestic uses can be
capability and to reduce disruption and
exploited by terrorist groups for the
inconvenience to the travelling public.
purposes of creating a CBRN or
improvised explosive device. Much work
12.15 The MOD has developed many
has already been undertaken to minimise
and varied tactics and techniques for
the opportunities to do so. NaCTSO and
assuring the safety of personnel in
the CPNI liaise with industry to provide
operational theatres, particularly from
specialist advice on the security of
explosive devices. We are working to
hazardous substances and the sites
ensure those lessons and experiences
which handle them. The ‘Know Your
are reflected in domestic counter-
Customer’ campaigns raise awareness
terrorism work.
about the ‘dual-use’ nature of certain
products and encourage suppliers to be
12.16 The multilateral Global Threat
more enquiring of new customers and to
Reduction Programme (GTRP)185 plays
report suspicious enquiries to the police.
an important role in denying terrorists
Through its network of CTSAs, NaCTSO
access to CBRN materials. The aim of
has delivered bespoke security advice
the GTRP is to improve the security of
to almost 2,000 sites storing
fissile materials held around the world;
hazardous material.
reduce the number of sites containing
nuclear and radiological material;
12.20 The Government is delivering an
contribute to the destruction of chemical
action plan for enhancing the safeguards
weapons stocks; and provide sustainable
in respect of CBRNE materials. This
employment for former weapon scientists
includes work to reduce accessibility to
whose expertise could otherwise be
hazardous substances posing the highest
acquired by terrorist organisations. It is
risk, based on their threat, vulnerability
the UK’s largest cooperative counter-
and impact across their life-cycle
proliferation assistance programme, and
(from their precursors through to their
is coordinated with other key donors,
disposal). The Government is working
notably the US.
with its international partners to improve
the security of hazardous substances
12.17 The UK is a leading participant
and potential radioactive sources and
in international multilateral regimes and
to ensure that the UK’s measures are
instruments designed to combat not only
not taken in isolation. Awareness-raising
the illicit transfer of CBRN material, but
measures for specific sectors, such as
also their means of delivery; these include
the academic community, are beginning
the Chemical Weapons Convention, the
and action is being taken to address
Biological and Toxin Weapons Convention,
identified gaps in the regulatory regime.

Part 2 12.21 OSCT is working with DECC, the
Office of Civil Nuclear Security and the
incident response; develop and procure
new equipment designed to increase
Section 12 Civil Nuclear Constabulary to ensure the speed of the response and free up
that the security of the UK’s civil nuclear officers for the most critical tasks; and
sector is sufficiently robust to mitigate to increase the numbers of CBRN trained
the threat from a terrorist attack186. officers (with a target of having over
10,000 by 2010).
Prepare
CBRNE Science and Research
12.22 To address the CBRN threat,
OSCT leads the cross-cutting CBRN 12.24 In Government a dedicated CBRN
Resilience Programme (part of the Science and Technology Programme
Cabinet Office’s Capability Programme) prioritises, targets and coordinates CBRN
which seeks to build and improve the research to address key requirements
UK’s ability to respond to and recover which will strengthen our response.
from a terrorist attack using CBRN Successes to date include the production
devices. It does this through the delivery of guidance on residual levels of
of a model response at major cities and contamination for the purposes of public
transport hubs. Achievements of the health advice and decontamination; the
CBRN programme since 2001 include: evaluation of detection equipment; advice
on medical treatment; and development
• An agreed multi-agency national
of novel detection technologies. The
response to CBRN terrorist incident.
Government is working closely with
• Training and equipping of over industry to improve our exploitation of the
7,000 police officers to deal with outcomes of research.
CBRN incidents.
12.25 There is a substantial cross-
• Development of facilities within the
Government programme of explosives
Fire and Rescue Service for managing
research coordinated and meeting
mass public decontamination
strategic requirements determined by
and training for disaster victim
the CONTEST Explosive Research
identification teams to work with
Working Group.
contaminated fatalities.
• Creating specialist teams within 12.26 The Government is also working
the Ambulance Service to work in closely on research with our international
hazardous areas and improve survival partners, of whom the most important
rates of victims. is the US. The UK plays an active role in
building the capacity of partners overseas
• Establishing a National Network of
under initiatives such as the Global
Laboratories to improve the early
Initiative to Combat Nuclear Terrorism. UK
identification of a possible chemical or
experts attend international workshops
biological incident.
and seminars, sharing information and
• Establishing the Government expertise with partners to help raise
Decontamination Service187 to provide awareness of CBRN terrorism and
expertise and guidance to authorities mitigate the risks to such an attack being
regarding contaminated buildings developed or taking place overseas.
and areas.
CBRN review
12.23 The Police National CBRN
12.27 In 2008 Ministers commissioned
Operational Response Programme was
a review of CBRN-related activity across
established in 2006 to: develop and
government. The review, the report
broker a standard national police doctrine
of which is classified, considered our
for tackling CBRN events; set up a
state of preparedness to deal with the
national Operations Centre to provide a
consequences of a CBRN attack.
single source of advice for police forces
on CBRN matters; coordinate any major
Part 2 Cbrne: future challenges
Section 12 • Some of the key challenges regarding

CBRN have been noted above under
Protect and Prepare. We need to be
able to understand how this threat
is evolving to better ensure that
we can, wherever possible, build in
protection against it. We need to
work closely with industry to develop
protective measures and to ensure
full exploitation of each new area
of research. We need to model
and predict the impact of possible
attacks and better plan for their
consequences. Our classified strategic
review will identify specific areas for
further action.
• Based on the classified review OSCT
will produce a new single cross-
Government and cross-CONTEST
CBRN strategy, setting a common
direction and goals for all partner
Departments and agencies.
• The challenges here are compounded
by uncertainties about the pace of
technological developments which
might help terrorism; and the extent to
which hitherto specialised information
and knowledge might be spread via
the internet or other means.

Part 3 Delivering CONTEST
Delivering CONTEST Page 133

Summary
CONTEST is overseen at Ministerial level by the

Cabinet Committee on National Security, International
Relations and Development (NSID), chaired by the
Prime Minister, and by the Home Secretary as the
lead Minister for counter-terrorism, and involving, as
required, the heads of the security and intelligence
agencies, the police, and Armed Forces.
Some aspects of CONTEST are also dealt with by subcommittees of NSID. NSID may
also receive external advice on counter-terrorism, as on other national security issues,
from the National Security Forum, an independent body of outside advisors with
expertise on many aspects of national security.
Delivery of the CONTEST Strategy requires close cooperation between a wide range of
organisations and stakeholders: local authorities, Government Departments, Devolved
Administrations, the police, security and intelligence agencies, emergency services and
the Armed Forces and international partners and multilateral organisations. CONTEST
also depends on the expertise and knowledge held by communities and citizens,
industry and the third sector.
For the first time, counter-terrorism work has a Public Service Agreement (PSA)
intended to set targets and monitor progress. The aim of this PSA is the same as
CONTEST: to reduce the risk to the UK and its interests overseas from international
terrorism. The PSA is based around nine intended outcomes across the four main
CONTEST workstreams.
Delivery of CONTEST and the PSA in particular is overseen by the CONTEST Board,
chaired by Director-General OSCT in his capacity as CONTEST Senior Responsible
Owner (SRO). Representatives from key Departments and agencies attend the Board;
governance arrangements are maintained by the CONTEST Portfolio Office.
Each workstream of CONTEST has a detailed delivery plan, identifying responsibility for
each programme, projected timescales, benefits and costs.
Part 3
The 2007 Comprehensive Spending Review announced increased resources for

counter-terrorism and intelligence. Security spending is planned to reach £3.5 billion
by 2011. This includes, among other increases, an additional £240 million in funding
for counter-terrorist policing, and over £100 million to improve our ability to stop people
becoming or supporting terrorists.
The 2012 Olympic and Paralympic Games will be a celebration of sport and culture for
London and the UK. The Government is responsible for ensuring that the Games are
safe and secure against all types of risk including terrorism. Since December 2008,
the Olympic Security Directorate in OSCT has been leading work on a multi-agency
security strategy for the 2012 Games. OSCT reports to the Home Secretary and
to NSID.

The West Midlands: delivering CONTEST
Arrangements for the delivery of CONTEST programmes as the starting point for
in the West Midlands are representative its work and then aims to develop local
of the steps we have taken across projects within that framework.
the country.
The West Midlands has rolled out the
CONTEST in the West Midlands is Channel Project in Birmingham and
coordinated by a regional CONTEST Board Coventry, run in a partnership between
chaired by the Government Office for the the WM CTU, local authorities, statutory
West Midlands (GOWM) and attended and community partners. Building on the
by: Home Office representatives, West Prevent action plans and existing multi-
Midlands Police, Regional Offender agency relationships, Channel will provide
Managers, UKBA, Youth Justice Board, a focus for public sector professionals
Public Health, representatives for and members of the community to refer
Children & Young People and the Regional individuals of concern to a multi-agency
Resilience Forum. risk assessment and case management
system bringing to bear a variety of
Pursue resources and expertise to counter
radicalisation.
With the recent expansion of the Police
Counter-Terrorism Network, some 400 GOWM and ACPO are also coordinating
dedicated police officers are now working projects under the 2008 Prevent strategy,
in the West Midlands Counter-Terrorism notably:
Unit (WM CTU). This has enabled
• The successful Black Country Imams
more resources to be devoted to more
project developed by Dudley Council
effective counter-terrorism operations.
(one of the CLG-funded Pathfinder
The CTU works in close association with
projects) to build the capacity and
the police Senior National Coordinator
skills of Imams through the provision
Counter-Terrorism, with the security and
of a range of training.
intelligence agencies and with JTAC.
• The DCSF Preventing Violent
In line with national practice the CTU Extremism (PVE) toolkit for schools
provides background material on the and the ‘Watch Over Me: Living
regional threat (including material relating Together’ DVD and lesson plan which
to radicalisation) for local authorities. will be delivered by the GOWM, local
education authorities and the WM
Prevent CTU.
• The work of Youth Offending Teams
Regional understanding of Prevent
(YOT) in Coventry, Sandwell and
has increased significantly since CLG
Birmingham. Each has developed
launched the Pathfinder Fund in Spring
proposals aimed at young offenders or
2007 and the revised Prevent strategy
those at risk of offending. Coventry for
was developed by OSCT in 2008188.
example will be including an interactive
GOWM is taking a leadership role in
counter-terrorism exercise in YOT group
delivering Prevent across the region,
sessions and will run a theatre project
recruiting dedicated staff and hosting
in schools and colleges in the area.
Prevent Peer Support Network meetings
to help effective communications and
information sharing. GOWM takes
the national Prevent strategy and
An additional 23 Prevent police officers
are now in place in the West Midlands
as a result of £1.25 million funding.
These Security and Partnerships
Officers (SPOs) are overt, uniformed
counter-terrorism officers based in
the community, one in each of the 21
Operational Command Units, who will be
directly involved in making, and facilitating
from the community, referrals to Prevent
programmes.
A UKBA West Midlands pilot project has

been implemented to embed counter-
terrorism in the work of UKBA in-country
casework teams, with a view to identifying
and referring to relevant authorities cases
of interest from Prevent and Pursue
perspectives. The UKBA regional office is
working closely with the CTU.
Protect
The West Midlands now has more

specialist security officers delivering new
Protect programmes such as crowded
places, better transport security and
border controls. Twelve Project ARGUS
Exercises (see Section Ten, Crowded
places, page 107) have been delivered to
356 Birmingham retail businesses and
crowded places security advice to 26 high
risk sites (including, for example, the Bull
Ring Shopping Centre).
Prepare
The West Midlands is now better prepared

for a terrorist attack. Local resilience
forums have coordinated with GOWM to
identify vulnerable critical infrastructure
sites, address issues identified in the
National Capabilities Survey and develop
stronger local partnerships, including with
business.
The West Midlands: delivering CONTEST Page 137

Part 3 Managing delivery
Section 13
Performance management 13.05 Each workstream of CONTEST

has a detailed delivery plan, identifying
13.01 OSCT is responsible for measuring responsibility for each programme,
the effectiveness and impact of CONTEST. projected timescales, benefits and
Alongside the work to revise CONTEST, costs. For security reasons these are not
significant changes have been made to published in this document.
the overall performance management
arrangements for the UK’s counter- 13.06 The governance arrangements for
terrorism effort. CONTEST also include specialist groups
overseeing a range of ‘cross-cutting’
13.02 For the first time, the UK counter- issues, such as the Police Counter-
terrorism effort has a Public Service Terrorism Board, the Overseas CONTEST
Agreement (PSA)189. The aim of PSA 26 Group (OCG) and the CONTEST-NOMS
is the same as that of CONTEST – to Board. These boards, reporting directly to
reduce the risk to the UK and its interests either the CONTEST Board or the relevant
overseas from international terrorism. sub-Board, help to:
• coordinate work that affects more than
13.03 The PSA indicators are further
one workstream or is of relevance to
reflected in the Departmental Strategic
the strategy as a whole, or
Objectives of key participating agencies
and Departments. They are also reflected • facilitate delivery of a discrete, time-
in the police performance management bound cross-cutting task (eg Identity
framework, the Assessments of Policing Management Board).
and Community Safety (APACS), and, for the
first time, in the National Indicator Set for 13.07 Tactical coordination of CONTEST
local authorities (see Section Fourteen on is facilitated by a Weekly Security Meeting
policing and on local delivery). (WSM) to discuss the current threat and our
response to it. This is chaired by the Home
Governance Secretary with senior representatives from
the intelligence and security and intelligence
13.04 Delivery is overseen by the agencies, the police, key Whitehall
CONTEST Board, chaired by Director- Departments and the Cabinet Office.
General OSCT in his capacity as Senior Departmental roles and responsibilities are
Responsible Owner (SRO) for CONTEST. set out in Annex B.
Stakeholders from key Departments,
agencies and the Scottish and Welsh Resources
Devolved Administrations are represented
on the Board at Director-General level and 13.08 The single security and
governance arrangements for CONTEST as intelligence budget, which includes
a whole are maintained by the CONTEST government spending on counter-terrorism
Portfolio Office, reporting to the SRO. Each and intelligence, was announced as part
of the four workstreams in CONTEST has a of the 2007 Comprehensive Spending
subsidiary-SRO who chairs the respective Review. It is forecast to rise from
sub-Boards for Pursue, Prevent, Protect £2.5 billion in 2008/09 to £3.5 billion
and Prepare. in 2010/11.
Part 3 Delivery partnerships
Section 14
Working locally other partners from the statutory and

voluntary sector and with community
14.01 In key areas, CONTEST is organisations (see also Section Nine,
dependent on local delivery for success. page 80). Local areas are expected to
Local delivery requires a range of have a joint action plan and arrangements
partners from across a range of sectors, in place to monitor its progress and
some new to counter-terrorism. Police impact. The GOs, local authorities
authorities, local authorities, courts, and police are in regular contact with
offender management services, primary Departments in London.
care trusts and NHS Boards, fire
services and many others have a role 14.05 Close working at the local level
to play, together with non-governmental is also well established in the CNI strand
organisations. of the Protect strategy which has for
some years been delivered through
14.02 Local delivery structures are partnerships between Government
most mature in the Prepare workstream. security advisers at CPNI, infrastructure
Regional Resilience and Local Resilience operators at the local level from both the
Forums (RRF and LRF) have been private and public sectors and local police
instrumental in the implementation of CTSAs. Work on crowded places, which
the Civil Contingencies Act 2004 (which falls under Protect, is just beginning: local
deals with resilience to both natural partners are considering how best to
hazards like flooding as well as terrorist work in partnership together. The 2007
attacks) and have taken responsibility review of crowded places, recommended
for disaster response planning in their that engagement build on existing local
respective localities. They include partnerships, such as CDRPs, LRFs
representation from the Government or other local bodies. Details on the
Offices (GOs), police, fire and health Crowded Places strategy are in the
services, local authorities and utility Protect Section (Section Ten).
companies. Equivalent arrangements are
in place in the Devolved Administrations. 14.06 Responsibility for coordinating this
These various forums have helped drive range of local delivery priorities falls to
improvements in dealing with the impact the GO network, made up of nine Offices,
of CBRN attacks. one in each of the English regions. They
help central Departments in England to
14.03 Our revised Prevent strategy develop policies and translate them into
puts local delivery at its heart: the effective delivery through knowledge of
national strategy sets a framework, the local environment and dialogue with
overall objectives and standards but local authorities and others. GOs play an
we recognise that the way in which important facilitation and coordination
the objectives are met and the type of role in ensuring and supporting effective
programmes that are required must local delivery of CONTEST.
reflect specific local circumstances.
14.07 There is a well-established
14.04 GOs and Devolved structure of Resilience Directors in the
Administrations are more closely involved, GOs, funded by the CLG. Since 2007,
with the local authorities and policing, OSCT has funded additional posts to
leading local partnerships to implement improve delivery of Prevent.
the strategy. They all work closely with
Delivery partnerships Page 139

Part 3 14.08 The Government Office Network
is represented on the CONTEST Board,
14.12 This is particularly important
during terrorism incidents. As lead
Section 14 the Protect and Prevent sub-Boards, and Minister for counter-terrorism, the Home
participates in numerous working level Secretary’s responsibilities include
groups reporting to the sub-Boards. incidents in Scotland and Wales. The
Devolved Administrations in Scotland and
14.09 GOs act on behalf of central Wales are responsible for coordinating
Government in negotiating Local Area wider consequences within their
Agreements (LAAs) with local authorities territories. Scottish Ministers are also
in England. LAAs are the main delivery responsible for policing and criminal
contract between central government investigations in Scotland. The Secretary
and local government and its partners. of State for Northern Ireland has
Signed in June 2008 with all 150 upper responsibility for security, policing and
tier local authorities, each LAA contains justice in Northern Ireland. When policing
up to 35 improvement targets specific and justice are devolved, the Secretary
to each Local Strategic Partnership of State will remain the lead minister
(LSP) area. These 35 targets are for national security in Northern Ireland.
based upon indicators drawn from In relation to international terrorism,
the National Indicator Set of 196 the Northern Ireland Office (NIO) is
indicators, the performance framework fully involved in the broader CONTEST
for local authorities and local authority programme.
partnerships.
14.13 The role of the Senior National
14.10 For the first time there are Coordinator Counter-Terrorism, which
now two counter-terrorism indicators covers all major terrorism investigations,
included in the National Indicator Set: has been important in coordinating
NI 35: ‘Building resilience to violent operational police activity across the
extremism’ and NI 36: ‘Protection whole of the UK. In fulfilling this role,
against terrorist attack’. Currently, the Senior National Coordinator liaises
19 local authorities have included with all relevant police forces, including,
NI 35 as a priority indicator (Barnet, where appropriate, the Police Service of
Birmingham, Buckingham, Calderdale, Northern Ireland, Scottish Forces and
Derby, Dudley, Gloucestershire, Haringey, with the ACPOS Coordinator of Counter-
Harrow, Hounslow, Lambeth, Leicester, Terrorism. OSCT works collaboratively
Peterborough, Reading, Redbridge, with the Devolved Administrations in the
Sandwell, Slough, Tower Hamlets and response to, and resolution of, terrorist
Westminster). Four have included NI 36 incidents.
(City of London, Greenwich, Kingston-
upon-Thames and Surrey). 14.14 The Devolved Administrations and
corresponding territorial departments
Devolved Administrations have engaged in CONTEST mainly
through a new cross-cutting group which
14.11 CONTEST is a UK-wide strategy considers implementation of CONTEST
and counter-terrorism is a reserved in Scotland, Wales and Northern Ireland.
matter (meaning that powers relating to The Devolved Administrations in Scotland
counter-terrorism are retained by the UK and Wales are also now represented at
Parliament). But many of the local delivery the CONTEST Board. At present the NIO
mechanisms are devolved. Delivery of has a seat, but not the Northern Ireland
the strategy requires close cooperation Devolved Administration. Representatives
between the UK Government and the also participate in a number of the
Devolved Administrations. working level groups on specific aspects
of CONTEST: the Crowded Places
Programme Board and
Part 3 the Cross-Sector Working Group (covering
the critical national infrastructure) under
14.17 Terrorist threats cross
international borders. Terrorist incidents
Section 14 Protect; NSID(PSR)(R)(O), the official level in this country usually have an overseas
committee covering resilience (where connection: the term ‘home-grown’
relevant) under Prepare; the Devolved terrorism, though often used, can be
Administrations Prevent Delivery Group misleading. Planning for attacks in the
under Prevent. UK takes place overseas as well as
at home. Extremist narratives draw
14.15 Within each Devolved inspiration from overseas and have been
Administration, counter-terrorism activity influential in driving radicalisation in the
is organised as follows: UK. Perceptions of UK foreign policy can
become a grievance which is exploited
Scotland: coordination of the delivery by extremist networks. Overseas, British
of CONTEST in Scotland takes place citizens have been killed and injured in
between the Resilience Advisory attacks; others have engaged in terrorist
Board (Special) and Scottish Guardian activity.
Group. The Scottish Preventing Violent
Extremism Unit (SPVEU) is a joint initiative 14.18 The work of Departments and
between the Devolved Administration agencies overseas on counter-terrorism is
in Scotland and ACPOS to lead on the coordinated through the OCG (chaired by
national coordination of the delivery of the FCO) and focused on countries which
Prevent. have direct impact on the threat to the UK
and UK interests; and on countries which
Wales: a Board to coordinate are critical allies in our counter-terrorism
implementation of CONTEST has been work. The Government’s network of
established with senior representation overseas posts is used as a platform
from the Welsh Assembly Government, for the cross-Whitehall effort. More than
the Association of Chief Police Officers 14 Departments and agencies, including
Cymru, the Welsh Extremism and Counter- those traditionally with a domestic focus,
Terrorism Unit, the Home Office and contribute to the delivery of CONTEST
others. overseas.
Northern Ireland: policing and justice 14.19 The OCG is responsible for
have not yet been devolved. There agreeing, and keeping under review,
are long-standing arrangements for the priority countries and regions which
coordinating the counter-terrorism pose the greatest threat to the UK and
strategy in Northern Ireland, chiefly UK interests overseas. UK Government
through the Security Policy Meeting, officials working in priority countries
chaired by the Secretary of State for report to the OCG and are responsible for
Northern Ireland. In addition, the Northern developing and delivering country-specific
Ireland Office chairs a local CONTEST counter-terrorism strategies which set
group, comprising the NIO, PSNI and out their contribution to CONTEST. These
CPNI. The Group looks at CONTEST as strategies set out a long-term vision
a whole, and in particular at the delivery for our overseas CONTEST work and
of the eight objectives within the Protect articulate objectives against each of
programme. A focused working group the four workstreams. Each strategy is
has been established to concentrate on based on the threat to the UK and its
Crowded Places. interests overseas, and linked to rigorous
assessments of key capabilities in our
Working internationally priority countries and regions.
14.16 The UK will not successfully 14.20 A wide range of interventions

counter the threat from international underpin each country and regional
terrorism alone. Close cooperation with strategy, including capacity building
international partners across CONTEST is assistance, lobbying and public diplomacy
essential for our success. campaigns. A range of Departments and
agencies, including the MOD, DfT and the

Part 3 Metropolitan Police Service are involved
in capacity building work overseas.
14.23 With our strategic partners and
multilateral organisations we are seeking
Section 14 This work focuses on improving key five key benefits, all of which apply across
capabilities identified in individual country CONTEST:
and regional strategies, and includes the
• Intelligence sharing and operational
following areas: putting in place effective
collaboration on law enforcement and
counter-terrorism legislation; improving
intelligence channels.
forensics, crime scene management
and bomb disposal capabilities; action • Political will to work with us on tackling
to disrupt terrorist financing; border terrorism and violent extremism.
security training; and improving aviation
• Shared effort to help build capabilities
and maritime security. Work on Prevent
in third countries.
overseas is outlined in more detail in
Section Nine. DFID’s work on poverty • Improved Government capabilities
reduction, good governance and conflict across the four CONTEST
prevention and British Council work on workstreams.
education are both vital to this effort.
• Joint work on Prevent-related
interventions.
14.21 The Government also works with
strategic partners to counter the terrorist
Policing
threat, notably the US, Commonwealth
partners and European allies. The
14.24 Policing is a key factor in all
European Union and the United Nations
aspects of CONTEST. Parts One and Two
also provide significant capabilities in
of this document outline the successes
a range of areas, including capacity
which policing has had in containing the
building, identification of best practice
terrorist threat and the role of policing in
and common standards and in specific
the main CONTEST workstreams:
policy areas such as asset freezing.
The Financial Action Task Force is the • Pursue: the police lead the executive
international organisation responsible phase of counter-terrorism, including
for combating the financing of terrorism, arrest and criminal investigation.
and plays an important role in ensuring
• Prevent: neighbourhood policing
all countries have effective financial
teams operating in conjunction with
safeguards against terrorism.
specialised counter-terrorism police
units are important to the aim of
14.22 The Government has made clear
stopping people becoming terrorists or
its view that the US detention facility at
supporting violent extremism.
Guantanamo Bay should be closed. The
US Government has also stated that • Protect: policing is vital to the security
it wishes to close the facility and has of our borders, critical national
stepped up efforts to reduce the number infrastructure and transport systems;
of those detained there, in particular and the protection of the public from
engaging with third countries over the terrorism.
transfer and resettlement of individual
• Prepare: the police lead the immediate
detainees. These are steps that we very
response to an ongoing terrorist
much welcome and we will continue to
attack, provide one part of the
work with the US Administration to close
recovery resilience infrastructure and
the facility. To date, the UK has accepted
would play a specialised role if an
14 detainees released from Guantanamo
attack included a CBRNE component.
Bay, nine of whom were British nationals;
the rest had been lawfully resident in
14.25 This section deals with other
this country at some period prior to their
aspects of counter-terrorism policing
detention. The UK has accepted more
that relate to CONTEST: the increase
people released from Guantanamo Bay
in resources available for policing; how
than any other country in Europe.
the police service is held accountable;
Part 3 governance and oversight, and policing
performance management.
Accountability
14.29 Counter-terrorism policing is
Section 14 overseen by a tripartite arrangement
Resourcing
comprising:
14.26 The Government continues to
• The Home Secretary – who is
invest in capability enhancement for
responsible for overall funding and
counter-terrorism policing, which has
setting strategic priorities.
been funded by specific grants. The
Police Counter-Terrorism Specific Grant • Chief Constables – who have
for England and Wales totalled more than operational responsibility for policing
£529 million in 2008/09 and consists of in their geographic area and who are
three main components: collectively represented at the national
level by ACPO.
• Metropolitan Police Service Counter-
Terrorism Specific Grant (£176 million). • Police Authorities – who are
responsible for ensuring that an
• Local and Regional Counter-Terrorism
effective and efficient police service is
specific funding (£128 million).
in place in their area.
• Dedicated Security Post funding
(£225 million). Governance and oversight
14.30 A new governance framework
14.27 The first two components
has been developed to support counter-
deliver enhanced counter-terrorism
terrorism policing:
policing capability including the Police
Counter-Terrorism Network, new Prevent • The Police Counter-Terrorism Board
officers, some protective measures at is the key forum for senior tripartite
ports, a number of national units and partners to consider the policing
programmes, and funding for forces contribution to CONTEST, policy and
when an operation places a strain on investment matters. It reports to the
their existing resources. In 2006/07, Home Secretary chaired National
£248 miliion was allocated to these Policing Board and to the CONTEST
areas (comprised of £142 million to the Board.
Metropolitan Police Service and £106
• A programme management team
million elsewhere) which was increased
has been established within the
to £299 million in 2007/08 (£161
ACPO’s Terrorism and Allied Matters
million to the Metropolitan Police Service
Business Area (TAM), responsible
and £138 million to other forces). The
for agreeing a strategy for the police
third component of the Police Counter-
service’s contribution to CONTEST
Terrorism Specific Grant is specifically for
and overseeing its coordination
specialist protection functions at ports,
and delivery through a Strategic
and royalty and VIP protection.
Programme Board, which is also
attended by the other tripartite
14.28 In 2007/08, the Scottish
members.
Executive provided £12 million from the
Police Central Government funds to pay • The ACPO (TAM) Finance and
for specialised counter-terrorism policing Workforce Planning Board offers
posts, which has continued in 2008/09. advice to the Home Office on the
This included funding to establish an onward allocation of relevant counter-
additional 55 specialised counter- terrorism grant monies.
terrorism posts across the Scottish Police
• A Joint Counter-Terrorism Oversight
Service. On top of that, in 2008/09 the
Group has been established
Scottish Executive has provided over £1.5
comprising relevant authorities for
million additional funding for counter-
the Metropolitan Police Service and
terrorism purposes to ACPOS.
lead forces within the Police Counter-
Terrorism Network.

Part 3 Performance management to develop the ability of those nations
to counter and disrupt terrorist activities
14.31 In 2008/09, six counter-terrorism
Section 14 indicators have been incorporated in the
and, in concert with Whitehall partners,
to develop their self-sufficient, self-
APACS. The results are not published
sustaining and fully capable counter-
but will provide police forces, authorities
terrorism forces. The Armed Forces’
and Government with vital counter-
contribution to Conflict Prevention and
terrorism information. They will cover:
peace support operations elsewhere in
the extent and quality of local police
unstable regions also helps to prevent
counter-terrorism related intelligence;
terrorism by tackling some of its
the disruption of potential threats; an
underlying causes.
evaluation of police Prevent programmes;
and vulnerabilities around hazardous
Prevent
sites and crowded places.
14.36 MOD, alongside other
14.32 This is complemented by Departments and civilian organisations,
work led by ACPO(TAM) to develop a help to stabilise fragile or failing states
performance framework specifically for which could create the conditions to
the Police Counter-Terrorism Network; and motivate or facilitate terrorist activity
wider guidance being produced by the or provide terrorists with safe havens
Association of Police Authorities for the within which to operate, as set out in
scrutiny of all protective services190. the Strategic factors Section (Section
Five, page 38). MOD also assists others
Defence across Government in building the
capacity of states to increase their own
14.33 Former Defence Minister, Adam counter-terrorism capability.
Ingram MP, has completed a study into
the role of the MOD in counter-terrorism Protect
and resilience. The study concluded that
14.37 Protection of potential terrorist
the focus for Defence’s counter-terrorism
targets is led by the police and the
contribution should continue to be
owners of such sites. The MOD plays a
overseas with any UK role restricted to
supporting role both as owners of some
niche capabilities in times of emergency.
of the UK’s CNI and through capacity
MOD has a range of capabilities which
within the MOD Police (MDP). The MDP’s
can be used across the four CONTEST
core role is the protection of defence
workstreams:
assets, but they also bring capabilities,
such as armed policing, which are in high
Pursue
demand. Overseas, the Government is
14.34 Part Two of this strategy (page 51) committed to protecting UK interests
explained the close connections between and the MOD provides specialist support
counter-insurgency work overseas, in to the UK’s missions in high threat
which our Armed Forces play a key role, countries. The MOD has also invested
and our counter-terrorism work. Counter- heavily in the protection of our deployed
insurgency work is not formally part of forces.
our CONTEST Strategy. But in both Iraq
and Afghanistan some international Prepare
terrorist organisations (notably Al Qa‘ida)
14.38 Within the UK the MOD provide
have come to play a part in insurgencies
the police with appropriate assistance,
alongside other organisations. In these
when requested, to stop terrorists
circumstances our Armed Forces will
carrying out attacks. This means having
pursue elements of Al Qa‘ida in order to
some specialist air, land and maritime
reduce the threat they pose.
capabilities available if needed.
14.35 MOD is more routinely engaged
14.39 The Armed Forces are not
in a substantial programme of military
designated as specified responders
capacity building in a range of priority
under the Civil Contingencies Act 2004.
countries around the world. The aim is
Part 3 The Government instead plans to use the
Armed Forces to augment the response
in identifying and dealing with terrorist-
related content on the internet (see
Section 14 of others if this becomes necessary. ‘The internet and Prevent’, Section Nine,
Niche capabilities for responding to page 94).
attacks include scientific expertise and
analysis and the ability to operate in 14.43 The security and intelligence
high threat and hazardous environments. agencies, the police and MOD are
Defence holds some of the country’s dependent on a wide range of private
leading expertise in CBRN and explosive sector partnerships to develop and
materials. Building on this, a counter- maintain operational capabilities. These
terrorism centre has recently been range from significant information
established at the Defence Science and technology requirements to the
Technology Laboratories (Dstl), Porton application of specialist technologies in
Down, which is leading counter-terrorism the most sensitive circumstances in the
research across a range of areas. UK and overseas. Across this spectrum of
activity private sector staff work alongside
Working with the Private sector their public sector partners in the
operation and maintenance of capability.
14.40 The Private sector has a key
role to play in the local, national and Protect
international delivery of the CONTEST
14.44 Under Protect the private sector
Strategy. This role extends beyond
are key partners in delivering security
science and technology and the supply
enhancements across our national
of goods and services and requires
infrastructure, transport system, crowded
Government and the Private sector
places and hazardous sites. With the
to work closely to align commercial
majority of the sites and assets that we
opportunities with CONTEST priorities.
are seeking to protect in the ownership
of the private sector, it is vital that
Pursue
Government works in close partnership
14.41 Government needs to to identify proportionate programmes
communicate with industry the generic of security enhancements. Government
nature of the terrorist threat and specific will continue to invest in developing
threats to sectors or locations. There and facilitating these partnerships.
are a wide range of ways in which this is CPNI has developed a range of
managed, involving, in the UK, the police, information exchanges which bring
CPNI and overseas, the FCO. together stakeholders in the private and
public sector to discuss infrastructure
14.42 We rely on the private sector protection issues and to allow industry
for access to information on which representatives to discuss the common
Pursue operations depend. Specific security issues they face.
industrial sectors (notably finance
and communications) play a key role 14.45 Across a range of protective
in this area and their activities are security technologies UK industry has
supported by well-developed regulatory world class capabilities. They include:
and statutory regimes. For example,
• Detection – the UK is a world leader
investigations leading from Suspicious
in the manufacture of security
Activity Reports to SOCA provide
detection technologies such as
information about terrorist financing
x-ray and explosives detection
and data from Communications Service
systems. UK companies provide
Providers, obtained under UK legislation
over 60% of airport security systems
(see ‘Surveillance, interception of
to the US Government through the
communications, safeguards and
Transportation Security Administration.
oversight’, Section Eight, page 70), is
Over 9,000 ‘Explosive Trace Detection’
vital to the identification and investigation
systems are deployed worldwide for
of Pursue targets. Cooperation with
counter-terrorist applications.
Internet Service Providers is important

Part 3 • Systems Integration – the UK
possesses world leading systems
forums, including representation from
local companies and the Chamber
Section 14 integration capability. Innovative of Commerce, meet to consider
command and control systems preparedness for significant terrorist and
facilitate multi-agency responses to other critical incidents.
emergency scenarios by integrating
complex information quickly and Structures for further engagement
effectively.
14.49 The Government has a long track
• CBRN – the UK is a world leader record of working with the science and
in CBRN defensive equipment and technology industry across the military,
supporting technologies. Industry security and intelligence markets.
provides complete fixed, mobile and However, the emergence of the current
portable defensive systems and threat and the development of CONTEST
provides CBRN defence to other have required new thinking about the
countries supplying a high percentage ways in which this engagement should
of world capability. be managed. In March 2007, industry
established the Security and Resilience
• Security barriers – including the
Industry Suppliers’ Community (RISC) to
innovative use of barriers to keep
provide a focal point for Government to
vehicle borne devices at a safer
liaise with industry on counter-terrorism
distance from potential targets and
requirements. RISC is an alliance of
the use of new materials resistant
suppliers, trade associations and
to damage or removal. The recent
academics, comprising over 2,000
delivery of new protection to buildings
companies ranging from prime contractors
in Westminster is an example of their
and global leaders through to small and
application.
medium enterprises and start-ups.
14.46 National Counter-Terrorism
14.50 Through RISC five joint Industry
Security Office (NaCTSO), utilising
Advisory Groups have been established
local police Counter-Terrorism Security
in areas of particular importance to this
Advisors (CTSAs) provide training to
strategy:
businesses, and other local partners,
via Project ARGUS – a scenario-based • CBRN
training exercise for businesses located
• CNI
in crowded places. NaCTSO has also
developed training for local authority • Information and Communication
planners and architects. Since January Technology (ICT)
2007, CTSAs have delivered over 700
• Detection of suicide bombers
ARGUS exercises to the private sector.
• Olympic security
14.47 NaCTSO have also published
guidance on protective security for a 14.51 The purpose of these five
wide range of business sectors including: groups is to better exploit Government-
sports stadia; pubs, clubs and bars; funded research, develop Government
shopping centres/high streets; visitor requirements, focus private sector
attractions; cinemas and theatres; and investment and enable access
restaurants and hotels. to innovation. They will establish
partnerships between Government and
Prepare industry to exploit CBRN research and
look at developing standards for detection
14.48 The private sector has a key
equipment, bring key parts of the security
role to play in the national and local
industry together with the providers of
resilience infrastructure. Category two
the CNI to accelerate the provision of
responders as defined under the Civil
appropriate security solutions, harness
Contingencies Act 2004191 – for example
the benefit of the commercially driven ICT
utility and telecommunications companies
industry to support Government security
– are engaged in the mitigation of
and counter-terrorism requirements and
risks identified in the NRA. Resilience
Part 3 explore how industry can best help with
the timely detection of suicide bombers.
on terrorism out to 2020, which is being
used to help shape future research
Section 14 requirements.
Science and Technology
14.56 Considering these trends, the
14.52 The Security and Counter- study identified that the key science and
Terrorism Science and Innovation technology domains relevant to CONTEST
Strategy was published in June 2007192. are ICT, biotechnology (including
The main objectives remain relevant: to synthetic biology), military sciences,
establish a stronger cross-Government nanotechnology, robotics, engineering and
approach to identification of counter- manufacturing. This work has significantly
terrorism requirements and research informed Part One of this document.
priorities; to improve horizon-scanning
for future threats and new scientific 14.57 OSCT is also leading on work to
developments; to increase collaboration ensure the Government has the ability
with international partners allowing to respond effectively, and with pace,
increased sharing of knowledge and to developments in technology and the
technology; and to cultivate a strong and terrorist threat. A recent study explored the
innovative counter-terrorism market. potential of the Government using venture
capital style techniques to draw through
Cross-Government approach to innovation for counter-terrorism. This work
science and technology used regional searches, competitions and
investor networks to access innovative
14.53 OSCT leads a network of cross-
ideas to protect crowded places and to
Departmental working groups bringing
understand developments in online ICT.
together policy leads, end users, and
The Government will build on this to enable
scientific experts to identify research
greater understanding of the innovation
priorities and address key capability
community, smarter influence over
requirements. This is managed by
external innovation and better coordination
the Science and Technology Board,
of investments in innovative ideas and
its associated sub-Boards and by a
solutions.
framework that maps science and
technology against CONTEST priorities.
International collaboration
14.54 It is supported in this work by 14.58 The Government has
several centres of expertise in science strengthened partnerships with the
and technology within Government. The international science community, notably
MOD Science and Technology Counter- in the US (through the Department of
Terrorism Centre plays an important role Homeland Security (DHS) and, through
in ensuring MOD investment in a range MOD, the Department of Defence) and in
of research and technologies assist Europe. There is also close working with
wider counter-terrorism requirements. partners in Canada and Australia.
The Home Office Scientific Development
14.59 Our international work is wide-
Branch provides high-quality advice,
ranging. There has been work with the
innovation and support in policing, crime
European Union on explosives-related
reduction, counter-terrorism, border
projects which have informed policy
security and identity management.
on hazardous substances. There is
And Her Majesty’s Government
collaborative working with the DHS
Communications Centre193 provides
in the development and evaluation of
expert, covert capabilities for the security
their fixed site, wide area, biological
and intelligence agencies.
detection system (the only one of its
kind in operational use worldwide). And
Horizon-scanning and innovation
the Government is benefiting from the
14.55 In collaboration with Dstl, MOD’s US’s direct practical experience in the
research arm, OSCT has conducted a clean-up and remediation of biological
review of future science and technology contamination of public areas resulting
developments that may have an impact from the Anthrax letters of 2001.

The 2012 London Olympics
The 2012 Olympic and Paralympic Games forward by the police, the Home Office
will be a celebration of sport and culture and a range of other Departments and
for London and the UK. The Government agencies.
has a responsibility to ensure that the
Games are safe and secure against all Since December 2008, multi-agency
types of risks, including terrorism. Olympic security planning has been led by
the Olympic Security Directorate in OSCT.
The 2012 Games will pose significant
challenges: OSCT is responsible for developing the
2012 Olympic and Paralympic Safety
• The scale and duration of the Games
and Security Strategy (‘the Olympic
is much greater than previous
Security Strategy’) approved by the NSID
events in the UK: nine million ticket
Ministerial subcommittee in February
sales; over 30 Olympic venues;
2009 and for monitoring progress of its
over 200 competing nations;
associated programmes. OSCT reports
around 14,000 athletes; 250,000
on Olympic Security issues to the Home
accredited personnel, 20,000 media
Secretary and to NSID.
representatives, and unprecedented
numbers of VIP visitors requiring
The Olympic Security Strategy involves
protection.
other Government Departments,
• Events will be taking place across the the police service, the security and
UK, not just in London. intelligence agencies, other emergency
services, local authorities, the private
• Planning is taking place in the
sector and a wide range of other key
context of the current ‘Severe’ threat
stakeholders including the Olympic
assessment of terrorism in the UK.
Delivery Authority (ODA), which is
The level and nature of the terrorist
responsible for venue construction,
threat may change over the course of
and London Organising Committee of
the planning process, and our plans
the Olympic Games (LOCOG), which is
will be flexible enough to respond to
responsible for staging the Games.
this.
• Counter-terrorism measures will need Development and implementation of
to be an integrated part of a much the strategy will be closely coordinated
larger security operation encompassing with CONTEST, drawing on CONTEST
a wide range of other potential risks programmes and principles. But it will
to the 2012 Games including public also include significant programmes to
order, crime (volume crime, violent manage risks relating to public order,
crime, and serious organised crime) crime and natural hazards.
and non-terrorist incidents such as
flooding. The five key workstreams of the Olympic
Security Strategy are aligned with but
The Home Office made a commitment where necessary go beyond CONTEST;
to ‘coordinate all matters of security and they are to:
the emergency services for the Games’
• Protect Olympic and Paralympic
as part of the London 2012 Olympics
venues, events and supporting
Host City Contract signed in late 2004
transport infrastructure, and those
with the International Olympic Committee.
attending and using them.
Since London secured the 2012 Games,
security planning has been taken
• Prepare for events that may
significantly disrupt the safety and
security of the Games and ensure
capabilities are in place to mitigate
their impact.
• Identify and disrupt threats to the
safety and security of the Games.
• Command, control, plan and resource
for the safety and security operation.
• Engage with international and
domestic partners and with
communities to enhance security and
ensure the successful delivery of the
Olympic Security Strategy and a safe
Olympic and Paralympic Games. This
includes a significant and developing
Prevent programme which links
specifically to the broader Prevent
workstream in CONTEST.
Operational delivery of the strategy in

2012 will be the responsibility of a senior
officer in the Metropolitan Police (but with
nationwide policing responsibilities) in
conjunction with other delivery agencies.
Our aim is to ensure there will be

significant legacy benefits from the
Olympic Security Strategy, from new
systems and technologies, which will also
support the security arrangements for
the Commonwealth Games to be held
in Glasgow in 2014, through to Prevent-
related programmes which have lasting
benefit within communities.

Communications Page 151

Section 15
Summary
Communications to the public, stakeholders and

affected communities are a vital part of our counter-
terrorism work. Good communications enable us
to convey the reality of the threats we face, the
principles which govern our response, the choices
we make and the successes we achieve.
Our communications must also respond to the propaganda directed against us by
terrorist organisations, often using new media in a relentless and sophisticated way.
We need to challenge the ideology and the outlook of Al Qa‘ida.
Much of this work falls to the Research, Information and Communications Unit,
a cross-Departmental team established in June 2007.
Part 4 Counter-terrorism communications
Section 15
“…I say to you: that we are in a battle, and more than half of this battle is in the
battlefield of the media. And that we are in a media battle in a race for the hearts
and minds of our Umma. And that however far our capabilities reach, they will never
be equal to one thousandth of the capabilities of the kingdom of Satan that is
waging war on us.”
Letter from Ayman Zawahiri to Abu Musab al Zarqawi, 9 July 2005

available at www.dni.gov/press_releases/letter_in_english.pdf
15.01 Communications are a vital part of not only the formation of OSCT but also
our work on counter-terrorism. CONTEST the creation of a new team to work on
depends for its success on partnerships. communications issues. This became
In the principles we set out earlier in this known as the Research, Information and
document (paragraph 7.03) we said that Communications Unit (RICU) which was
these partnerships depend on openness established in June 2007 and is staffed
and trust: both depend upon accurate and directed by CLG, FCO and the Home
communications about the threat we face Office. The unit forms part of OSCT.
and the responses we believe we have to
make. This document reflects the priority 15.04 The purpose of RICU is to ensure
we put on this part of the strategy. that the UK Government communicates
effectively to reduce the risk of terrorism,
15.02 Communications are also vital to by:
our work to refute the ideology of Al Qa‘ida
• advising CONTEST partners on
and the propaganda which they and other
their counter-terrorism related
terrorist organisations direct towards this
communications
country. In the first part of this document
we identified ideology as one of the four • exposing the weaknesses of violent
key drivers of contemporary terrorism. extremist ideologies and brands, and
We also noted that terrorist organisations
• supporting credible alternatives
have made use of communications
to violent extremism using
technology, using new media to ensure
communications.
that their ideology and propaganda reach
a wider audience than has been possible
15.05 RICU is therefore at the centre of
for terrorist groups before. But history has
the Government’s efforts to communicate
shown us that ideologies and propaganda
the Government’s counter-terrorism
can be attacked and weakened. It is
strategy and to use messaging to
vital that we use the tools of the new
disrupt the Al Qa‘ida narrative. It plays
communications age to refute the claims
a central strategic coordinating role
made by contemporary terrorism and by
to support other Departments and
that means to reduce the threat to the UK
Agencies, police and local authorities
and UK interests overseas.
in delivering their own Departmental
Prevent communications strategies. RICU
15.03 The review in 2006/07 of
also carries out its own campaigns and
Government arrangements for counter-
media work.
terrorism recognised the key role of
communications and recommended

Part 4 Understanding audiences 15.10 The first part of this strategy
argued that contemporary terrorism is
Section 15 15.06 Effective communications driven by an ideology and not a theology.
requires a comprehensive understanding It is vital to make a clear distinction
of intended audiences including their between violent extremist ideologies
attitudes, ages, locations, influences and and the religion which violent extremists
media consumption. RICU provides critical often and falsely claim to represent.
judgements about the context and effect Terrorists and violent extremists use
of counter-terrorism communications, exclusive messages about a ‘War on
explaining what should be said to whom, Islam’ and concepts of ‘them and us’ to
through which channels and with what drive division between British Muslims
effect. RICU draws together specialists and mainstream society. Echoing such
in audience insight and communications; language simply reinforces it. Describing
marketing; digital media; anthropology; terrorists as criminals and murderers
research methodology and knowledge deglamorises terrorism. It is of course
management; and pan-Arab media. also important to talk about the ideology
of contemporary terrorism and we have
15.07 Overseas, RICU and the FCO are sought to do so in this strategy.
coordinating work on audience research.
The FCO is progressively rolling out 15.11 Language and communications
the Overseas Prevent Communications are international. What we say and do
System (OPCS), a framework for collating about countering terrorism in this country
research and generating influence will have repercussions elsewhere. But
maps of the Government’s overseas the opposite is also true: what we say
target audiences, and channelling overseas, or what is said by our allies
messages through credible individuals and partners, will have an impact here
and institutions. RICU are developing and we may be associated with it. We
research projects on audiences with have therefore worked hard to share
the Government of Pakistan and the conclusions of RICU’s research
have also developed direct links with with overseas partners. The European
creative agencies, and state and private Union Counter-Terrorist Coordinator has
broadcasters, to create programming for established a number of workstreams to
the Pakistan audience and UK diaspora. coordinate aspects of our counter-terrorism
research and best practice in member
The language we use states: RICU leads the workstream on
communications. RICU has separately
15.08 The language Government uses worked closely with the US Government.
to describe the threats we face and our
response to them needs to be carefully Message delivery
chosen. It must be accurate. But it must
also be sensitive to history, culture and 15.12 The effect a message will have
interpretation and avoid creating, or on its intended recipients is strongly
exacerbating existing grievances in a influenced by the method of delivery.
way which will ultimately undermine the Government voices and Government
strategy itself. messaging will not always reach and
change attitudes or behaviours in our
15.09 RICU has carried out specific key audiences. So RICU also works to
research into the impact of language on promote credible alternative voices who
Muslim communities in the UK because may often be better able to challenge
it is these communities which, above aspects of the ideology of contemporary
all, are being targeted by Al Qa‘ida terrorism.
ideology and propaganda. The research
indicated how easy it is to create 15.13 RICU is developing projects
misunderstandings and confusion. Terms that will use all forms of media to help
like Islamist and jihad are not always communities challenge violent extremism.
understood and need to be used and These projects will focus on the UK but
explained with care. (as we have said above) the messages
Part 4 have international impact. In this area
RICU’s work is aligned with CLG, whose
Section 15 work puts communities at the centre of
the response to violent extremism and
supports them to deliver local solutions
for local challenges.
15.14 CLG’s Prevent communications

strategy aims to build communities’
resilience, empowering them to speak out
against and reject violent extremism. This
includes work to promote Muslim voices
and positive Muslim role models.
15.15 Examples of existing or projected

RICU work include:
• internet forums where individuals are
encouraged to debate issues within
safe environments in order to undercut
the violent extremists’ distorted
narrative of oppression and victimhood
• use of specialist press targeting
specific audiences
• developing documentaries on
delegations showcasing British Islam
to overseas audiences, streamed
over the internet through community
organisation websites, and through
text messaging
• use of social media sites by community
organisations to personalise the varied
nature of victims of terrorism, and
• communications support and
capacity building for local champions
and delivery partners (including
local authorities and community
organisations).
15.16 Research suggests that many

communities in this country are sceptical
about media reporting on terrorism. RICU
also seeks to raise the overall standards
of media coverage of counter-terrorism
issues and works with the media to inform
and advise on projects that impact on the
counter-terrorism agenda. A priority now
is to strengthen links with South-Asian
(particularly Pakistan) and pan-Arabic
media channels which impact on priority
overseas audiences and are influential on
UK diaspora communities.

Conclusion
International terrorism is a threat to the security of the United

Kingdom and to the ability of British people to live their normal
lives. This strategy has outlined the origins of this threat and
how, in recent years a new form of terrorism has emerged,
fundamentally different in scale and kind from international
or domestic terrorism threats we have faced before.
In recent years there has been a succession of attacks and

plots against the UK, initiated by Al Qa‘ida or by like-minded
groups and individuals, who aim to cause mass casualties in
pursuit of their political agenda.
The contemporary terrorist threat is rooted in conflicts

overseas and the fragility of some states, in an extremist
ideology based on the use of violence, in the opportunities
created by modern technologies, and in the process of
radicalisation that generates popular support and violent
extremism and terrorist groups.
Our response to the threat we face is based on stopping

terrorist attacks, preventing people becoming terrorists or
supporting violent extremism, strengthening our protection
against attack, and limiting the impact of any attacks that do
occur. It is intended to address immediate threats and longer
term causes.
Our response must be local, national and international.

It must include and will depend upon communities, local
authorities, Departments, agencies, Devolved Administrations,
and overseas partners. This will continue to require a very high
degree of coordination.
CONTEST must also coordinate with other Government
policies that are essential to its delivery. They include
conflict reduction, our international aid programme, our
work in Afghanistan and Pakistan and our support to
communities here, building cohesion, empowerment and
race equality in this country.
Our response has included changes to our laws to

reflect the threat we face, but has at all times upheld the
principles and values of the UK as a liberal democracy.
Our approach to national security in general and to
counter-terrorism in particular is grounded in a set of
core values. They include human rights, the rule of law,
legitimate and accountable government, justice, freedom,
tolerance and opportunity for all.
We believe that CONTEST is one of the most

comprehensive and wide-ranging approaches to tackling
terrorism developed by any major nation. We judge that
to date it has achieved its aim – to reduce the risk to
the UK and to its interests overseas from international
terrorism, so that people can go about their lives freely
and with confidence. This revised strategy is intended to
ensure that it will continue to do so.
Conclusion Page 157

Annex A: PSA outcomes
Public Service Agreements (PSAs) set out the key priority outcomes the Government
wants to achieve in the next spending period (currently 2008–11). For the first time,
counter-terrorism work has a PSA. The aim of PSA 26 is the same as that of CONTEST
– to reduce the risk to the UK and its interests overseas from international terrorism.
PSA 26 is based on the four main workstreams of CONTEST. Under each one, there
are a number of outcome measures designed to monitor and assess aspects of
the cross-Government counter-terrorism effort. The outcome measures are in turn
underpinned by a number of specific indicators (not shown).
Outcome 1: Detection
A reduction in the risk that attack planning against the UK or UK interests will go
undetected by means of improved intelligence coverage of the target community
Pursue
Outcome 2: Disruption
Reduction in the risk of a successful attack against the UK by means of an increase
in the impact of disruption on those who threaten the UK or UK interests
Outcome 1: Resilience in domestic communities

An improvement in the extent to which domestic Muslim communities reject and
condemn violent extremism
Outcome 2: Resilience in sectors and services

Prevent A reduction in the risk of individuals who come into contact with key sectors/
services becoming or remaining violent extremists
Outcome 3: Resilience in overseas priority countries

A positive UK contribution to the resilience of priority countries to violent extremism
Outcome 1: Vulnerability of UK citizens

Reduction in the vulnerability of UK citizens to terrorism in the UK and overseas
through increased protective security
Protect Outcome 2: Vulnerability of CNI

Reduction in the vulnerability of the critical national infrastructure to terrorist attack
Outcome 3: Vulnerability of UK (borders)

Reduction in the vulnerability of the UK to terrorism through strengthened border
security
Outcome: Capabilities to mitigate national risks

Prepare Increased capabilities to deal with the potential consequences, as set out in the
National Resilience Planning Assumptions, of the majority of our national risks
Annex B: Departmental roles and responsibilities
Cabinet Office: provides direct counter- Department for Communities and

terrorism advice to the Prime Minister, Local Government (CLG): leads the
provides the secretariat for the Ministerial community-based response to violent
Committee on National Security, extremism, and works with the Devolved
International Relations and Development Administrations to build the capacity of
and facilitates the coordination of the UK Muslim communities and wider society
Government’s response via the Cabinet to resist and challenge the activities
Office Briefing Rooms. The Cabinet and ideas of violent extremists. CLG
Office oversees the Single Intelligence is the central government sponsors of
Account and also services the Joint local authorities and the local delivery
Intelligence Committee, which sets framework (Government Offices (GOs),
strategic intelligence gathering priorities Local Strategic Partnerships (LSPs) and
and delivers strategic intelligence Local Area Agreements (LAAs). CLG is
assessments. The Civil Contingencies also the sponsoring Department for the
Secretariat of the Cabinet Office Fire and Rescue Service (owned by the
coordinates the national Resilience 46 local Fire and Rescue Authorities).
Programme for dealing with civil Through its Resilience Programme CLG
emergencies, which encompasses provides the Fire and Rescue Service with
coordination of the Prepare strand of resilient communications, and enhanced
CONTEST. capabilities to respond to national scale
emergencies. CLG also coordinates the
Centre for the Protection of the National work of the regional GOs on preparing for
Infrastructure (CPNI): provides protective major emergencies through the Regional
security advice across the national Resilience Teams, working in partnership
infrastructure. with Regional Resilience Forums and
responder organisations.
Crown Prosecution Service (CPS): the
Government Department responsible for Department for Culture, Media and
prosecuting criminal cases investigated by Sport (DCMS): the cultural, creative and
the police in England and Wales. As the sporting sectors supported by DCMS can
principal prosecuting authority in England play an important role in giving people
and Wales, the CPS is responsible for: opportunities; in developing a common
advising the police on cases for possible sense of shared values and identity; and
prosecution; reviewing cases submitted in presenting a modern and progressive
by the police; determining any charges in image of British society.
all but minor cases; preparing cases for
court; and presenting cases at court. Department for Environment, Food and
Rural Affairs (DEFRA): responsible for
Department for Children, Schools dealing with the disruption to the water
and Families (DCSF): leads work with supply, sewerage system and food supply
partners across children’s and youth that might occur as a result of a terrorist
services and schools in order to raise attack. The consequence management
awareness and capability to prevent phase of a CBRN incident would be led by
violent extremism. DCSF also engages DEFRA.
directly with young people to encourage
them to take a lead in rejecting violent Department for Innovation, Universities
extremism, building long-term resilience to and Skills (DIUS): provides guidance to
violent extremism. higher and further education sectors on
tackling violent extremism. They help
Annex B: Departmental roles and responsibilities Page 159

Annex B student bodies to support students
against violent extremism and help them
nationals or British interests overseas
and is responsible for preparations and
to work closely with the police. DIUS also contingency planning for any such attack
supports improved provision of Islamic and leads on the overseas delivery of
studies to help counter certain violent Prevent and on outreach to UK Muslim
extremist ideologies. communities on British foreign policy.
Department for International Government Communications

Development (DFID): is required to use Headquarters (GCHQ): leads on the
its resources for the purpose of poverty collection of signals intelligence and
reduction overseas. Its activities can provides information security advice and
contribute to Prevent by addressing the equipment to help protect Government
underlying social and economic causes of information.
radicalisation, helping Governments in key
countries to deliver basic services and Government Offices (GOs): the network
improve governance. In the UK, DFID is of nine regional GOs manages the
working to make concern for development strategic relationship between central
a national value around which the UK’s government and localities across the full
diverse communities can come together. spread of government work, including
across CONTEST. On Prevent issues, GOs
Department for Transport: aims to work to ensure good communications
protect the travelling public, transport between central government and local
facilities and those employed in the authorities, build capacity, facilitate
transport industry from acts of terrorism cross-boundary working and identify
while retaining public confidence in and disseminate good practice. Prepare
transport security without imposing activities are led by Regional Resilience
requirements that unnecessarily impact teams, who are supported in their work by
on the way they travel. Local Resilience Forums.
Department of Health (DH): provides Government Office for Science (GO-

medical services in the event of a terrorist Science): headed by the Government
attack. DH is also a strategic partner Chief Scientific Adviser, the GO-Science is
for Prevent particularly in relation to the responsible to the Prime Minister and the
potential role of health professionals in Cabinet for the quality of scientific advice
contributing to the support of individuals used within Government, including that
who may be vulnerable to radicalisation. relating to counter-terrorism. GO-Science
is engaged across CONTEST to ensure
Devolved Administrations: are it is underpinned by robust science,
responsible in Northern Ireland, Scotland including peer review.
and Wales for the functions which have
been devolved to them according to HM Treasury: leads on terrorist financing
their different devolution settlements. and asset freezing. HM Treasury’s asset-
All three Devolved Administrations are freezing powers principally derive from
responsible for health, education and UN Security Council Resolutions, which
local government, and the Devolved are implemented in the UK through
Administration in Scotland is also Orders in Council and EC Regulations. In
responsible for policing and justice. 2007, HM Treasury set up a dedicated
Asset Freezing Unit to handle counter-
Foreign and Commonwealth Office (FCO): terrorist and other asset-freezing work.
has overall responsibility for the delivery HM Treasury’s Financial Crime Team, with
of CONTEST overseas, working closely OSCT, coordinates the delivery of our
with partners across Government. The strategy for tackling terrorist finance.
FCO chairs the Overseas CONTEST Group
which sets counter-terrorism strategies Joint Terrorism Analysis Centre (JTAC):
for priority countries. The FCO leads the UK’s centre for the all-source
the Government’s response to terrorist analysis and assessment of international
attacks overseas which affect British terrorism. JTAC sets threat levels and
Annex B issues analytical reporting to Government
Departments and agencies.
crises; and to manage the Olympic Safety
Strategy.
Ministry of Defence (MOD): contributes Police: the police service is responsible

to all workstreams of CONTEST using for disrupting or responding to terrorist
its military capability. It supports Pursue incidents in the UK with Security Service
through operations overseas to detain support.
terrorists and deal with insurgencies, as
well as through intelligence collection Prime Minister’s Delivery Unit (PMDU):
and counter-terrorism capacity building located within HM Treasury, PMDU works
for partner nations (which together with with OSCT to ensure effective delivery of
conflict prevention work, also supports the counter-terrorism PSA.
Prevent) and support to overseas law
enforcement and security agencies. MOD Secret Intelligence Service (SIS): collects
supports Protect by encouraging improved intelligence overseas to promote and
domestic security and cooperation defend the national security and the
between the Armed Forces and the UK economic well-being of the UK. It supports
civilian Emergency Services. In the event Security Service work in the UK.
of a terrorist attack that exceeds the
capability or immediate capacity of the UK Security Service: leads the investigation
civilian response, the MOD can provide of terrorism in the UK.
support to Prepare through Military Aid to
the Civil Authorities. UK Border Agency (UKBA): an agency of
the Home Office, UKBA is responsible for
Ministry of Justice (MoJ): responsible making policy on immigration and asylum,
for ensuring there is sufficient capacity and managing and enforcing the UK’s
in the criminal justice system to deal border and immigration controls. UKBA
with terrorist cases, and that they supports the police and security and
are dealt with efficiently, effectively intelligence agencies across CONTEST.
and securely. Through the work of the
National Offender Management Service
and in partnership with the police and
security and intelligence agencies,
the MoJ manages the risks posed by
offenders who are violent extremists.
The Youth Justice Board, which is jointly
accountable to both MoJ and DCSF, is
responsible for delivering a range of
prevention programmes designed to
support individuals who are vulnerable to
recruitment by violent extremists.
Northern Ireland Office: the Government

Department that supports the Secretary
of State for Northern Ireland.
Office for Security and Counter-Terrorism

(OSCT): has four main roles: to support
the Home Secretary and other Ministers
in developing, directing and implementing
CONTEST across Government; to deliver
aspects of CONTEST directly eg legislation
and protective security policy; to facilitate
oversight of Security Service/police
counter-terrorism operations in the UK
and manage counter-terrorism related
Annex B: Departmental roles and responsibilities Page 161

Annex C: Acronyms and abbreviations
ACPO Association of Chief Police Officers

ACPOS Association of Chief Police Officers in Scotland
ACPO (TAM) Association of Chief Police Officers (Terrorism and Allied Matters)
Business Area
ANO Abu Nidal Organisation
APACS Assessments of Policing and Community Safety
BCU Base Command Unit
BTP British Transport Police
CBRN Chemical, Biological, Radiological and Nuclear
CBRNE Chemical, Biological, Radiological, Nuclear and Explosive
CCS Civil Contingencies Secretariat
CD Communications Data
CLG Department for Communities and Local Government
CNI Critical National Infrastructure
COBR Cabinet Office Briefing Rooms
CPNI Centre for the Protection of the National Infrastructure
CTC Metropolitan Police Counter-Terrorism Command
CTIU Counter-Terrorism Intelligence Unit
CTSA Counter-Terrorism Security Advisor
CTU Counter-Terrorism Unit
DCSF Department for Children, Schools and Families
DECC Department of Energy and Climate Change
DFID Department for International Development
DfT Department for Transport
DHS US Department of Homeland Security
DIUS Department for Innovation, Universities and Skills
DH Department of Health
Dstl Defence Science and Technology Laboratories
DWA Deportations with Assurances
ECHR European Convention of Human Rights
EEA European Economic Area
FATA Federally Administered Tribal Areas
FCO Foreign and Commonwealth Office
GIA Armed Islamic Group
GCHQ Government Communications Headquarters
GO Government Office
GOWM Government Office for the West Midlands
GSPC Salafist Group for Preaching and Combat
GTRP Global Threat Reduction Programme
HEFCE Higher Education Funding Council for England
IAEA International Atomic Energy Agency
ICT Information and Communication Technology
IED Improvised Explosive Device
IMP Intercept Modernisation Programme
ISP Internet Service Provider
JI Jemaah Islamiyah
JIC Joint Intelligence Committee
JTAC Joint Terrorism Analysis Centre
LAA Local Area Agreement
LOCOG London Organising Committee of the Olympic Games
LRF Local Resilience Forums
LSP Local Strategic Partnership
MDP Ministry of Defence Police
MINAB Mosques and Imams National Advisory Board
MOD Ministry of Defence
MOJ Ministry of Justice
MOU Memorandum of Understanding
NaCTSO National Counter-Terrorism Security Office
NIR National Identity Register
NIS National Identity Scheme
NOMS National Offender Management Service
NIO Northern Ireland Office
NRA National Risk Assessment
NSID Ministerial Committee on National Security, International Relations
and Development
OSCT Office for Security and Counter-Terrorism
OCG Overseas CONTEST Group
Annex C: Acronyms and abbreviations Page 163

Annex C
OPCS Overseas Prevent Communications System

PFLP Popular Front for the Liberation of Palestine
PMDU Prime Minister’s Delivery Unit
PSA Public Service Agreement
PSNI Police Service of Northern Ireland
PVE Preventing Violent Extremism
RAG Red Amber Green
RICU Research, Information and Communications Unit
RIPA Regulation of Investigatory Powers Act 2000
RISC Security and Resilience Industry Suppliers’ Community
RRF Regional Resilience Forums
SIS Secret Intelligence Service
SO15 Specialist Operations Branch 15 – an internal police service
designation for Counter Terrorism Command.
SOCA Serious Organised Crime Agency
SPO Security and Partnerships Officer
SRO Senior Responsible Owner
TACT Terrorism Act 2000
UKBA United Kingdom Border Agency
VIP Very Important Person
VOIP Voice Over Internet Protocol
WM CTU West Midlands Counter-Terrorism Unit
WSM Weekly Security Meeting
YOT Youth Offending Team
Annex C: Acronyms and abbreviations Page 165
End notes
These end notes are intended to indicate where further open source information may
be found about details included in the text. HM Government does not necessarily
endorse all the views expressed in literature cited below.

Section 1 – International terrorism and the United Kingdom: background
1. Bruce Hoffmann, Inside Terrorism (New York: Columbia University Press rev. ed, 2006), pp.46-53 (Palestine),
pp.53–57 (Cyprus)
2. Russel D. Howard and Reid L. Sawyer, Terrorism and Counterterrorism – Understanding The New Security
Environment Readings and Interpretations (Dubuque: McGraw Hill/Contemporary Learning Series, 2006), p.535
and 542
3. Statistics provided by the NIO
4. Bruce Hoffmann, Inside Terrorism (New York: Columbia University Press rev. ed, 2006), p.63
5. http://news.bbc.co.uk/onthisday/hi/dates/stories/september/12/newsid_2514000/2514929.stm
6. The RAND terrorist incident database indicates that between 1968 and 1980 Palestinian terrorist organisations
were responsible for 331 terrorist incidents, considerably more than other groups. See RAND – MIPT Terrorist
Incident Database (2007) and RAND Terrorism Chronology (1997); available at www.rand.org/ise/projects/
terrorismdatabase
7. www.guardian.co.uk/print/0,,4484907-103684,00.html
8. Con Coughlin, Hostage: The Complete Story of the Lebanon Captives (London, Little, Brown and Company,
1992) pp. 154, 259-62 and 285-6. In December 2003 Zaid Hassan Abd Latif Safarini pleaded guilty in the
United States to his role in the hijacking of Pan Am Flight 73 at Karachi in September 1986 and admitted his
membership of the Abu Nidal Organisation. See: www.usdoj.gov/usao/dc/Victim_Witness_Assistance/03386.
html
9. http://news.bbc.co.uk/onthisday/hi/dates/stories/october/24/newsid_2478000/2478505.stm
10. www.aaib.gov.uk/cms_resources/dft_avsafety_pdf_503158.pdf
11. www.scotcourts.gov.uk/library/lockerbie/index.asp
12. Islamism is a political philosophy which, in the broadest sense, promotes the application of Islamic principles
to modern governance. See for example Montasser Al-Zayyat, The Road to Al Qa‘ida, The story of Bin Laden’s
Right Hand Man (London: Pluto, 2004), preface p.xiii by Ahmed Fakry and Sara Nims. The term ‘Militant
Islamism’ is used here to specify an ideology which argues for the use of violence to achieve this objective.
There are no commonly agreed definitions of ‘Islamism’ and ‘Islamist’. They do not refer to a single unified
movement; and individuals and groups that define themselves using these terms or may be described by others
using the terms can hold widely differing views. Most Islamists do not condone the use of violence to achieve
their aims.
13. Lawrence Wright, The Looming Tower, Al-Qeada’s Road to 9/11 (London: Penguin Books, 2007), pp.48–57
14. F or further background see Malise Ruthven, A Fury for God: The Islamist attack on America (London: Granta,
2002) and Montasser Al-Zayyat The Road to Al Qaeda (London: Pluto, 2004). Zawahiri’s debt to Qutb was
explicitly acknowledged in his work entitled Knights Under the Prophets Banner; see Gilles Kepel and Jean-
Pierre Milelli (eds) Al Qaeda in its own words (Cambridge Mass and London: Harvard, 2008), pp.149–150.
15. Marc Sageman, Understanding Terror Networks (Philadelphia: University of Pennsylvania Press, 2004), p.34
16. Ibid, p.34
17. Gilles Kepel, Jihad: The Trail of Political Islam (London: I.B.Tauris & Co, 2002), p.300
18. www.mi5.gov.uk/output/other-groups.html
19. olin Robinson, In the spotlight: Armed Islamic Group (GIA) a.k.a. Groupement Islamique Arme (Washington DC:
C
Center for Defense Information, 2003) available at: www.cdi.org/terrorism/gia_020503-pr.cfm See also www.
fco.gov.uk/en/about-the-fco/country-profiles/middle-east-north-africa/algeria?profile=politics&pg=7
20. Jason Burke, Al-Qaeda (London: Penguin Books, 2007), p.205
21. National Commission on Terrorist Attacks Upon the United States, The 9/11 Commission Report, (Washington
DC: US Government Printing Office 2004), p.71 available at http://govinfo.library.unt.edu/911/
report/911Report.pdf
22. Ibid, p.145-150
23. Ibid, p.56
24. Ibid, p.56-57
25. in Laden has written repeatedly on Saudi Arabia. See for example “The Invasion of Arabia” and “The Saudi
B
regime” (1996) in Bruce Lawrence (ed), Messages to the World: the statements of Osama bin Laden (London:
Verso, 2005), p.15 and p.31
27. “ Declaration of Jihad” in Bruce Lawrence (ed), Messages to the World: the statements of Osama bin Laden
(London: Verso, 2005), p.23. An annotated version is available in Gilles Kepel and Jean-Pierre Milelli (eds), Al
Qaeda in its own words (Cambridge, Mass and London: Harvard, 2008), p.47
28. “ The World Islamic Front” in Bruce Lawrence (ed) Messages to the World: the statements of Osama bin Laden
(London: Verso, 2005) p.58 and Gilles Kepel and Jean-Pierre Milelli (eds) Al Qaeda in its own words (Cambridge
Mass and London: Harvard, 2008), p.53
30. Ibid, p.175
31. Marc Sageman, Understanding Terror Networks (Philadelphia: University of Pennsylvania Press, 2004) p.99-103
32. ational Commission on Terrorist Attacks Upon the United States, The 9/11 Commission Report, (Washington
N
33. Ibid
34. www.fco.gov.uk/en/about-the-fco/country-profiles/asia-oceania/afghanistan?profile=history&pg=3
35. ttacks took place in Riyadh in February 2003 (http://news.bbc.co.uk/1/hi/world/middle_east/2784977.stm

A
“Briton killed in Saudi Arabia”); in Riyadh in May 2003 (www.independent.co.uk/news/world/middle-east/
dozens-killed-in-riyadh-suicide-bombings-745127.html ”Dozens killed in Riyadh suicide bombings”); in May 2004
in Yanbu (http://news.bbc.co.uk/1/hi/world/middle_east/3675891.stm “Westerners killed in Saudi Arabia”)
and in Alkhobar (29 May 2004 http://news.bbc.co.uk/1/hi/world/middle_east/3762423.stm “Gunmen ‘killed
22’ in Saudi city”).
36. “ Car bomb targets theatre in Qatar” (March 2005) http://news.bbc.co.uk/1/hi/world/middle_east/4365039.

stm
37. Jason Burke, Al-Qaeda (London: Penguin Books, 2007), p.274-275
38. Ahmed S. Hashim, Insurgency and Counter-Insurgency in Iraq (London: Hurst & Company, 2006), p.47
39. ashington Post, “Death Could Shake Al-Qaeda in Iraq and Around the World” (10 June 2006) available at
W
www.washingtonpost.com/wp-dyn/content/article/2006/06/09/AR2006060902040_2.html
40. Marc Sageman, Leaderless Jihad (Philadelphia: University of Pennsylvania Press, 2008), p.63
41. Jason Burke, Al-Qaeda (London, Penguin Books, 2007), p.263
42. Ibid, p.263
43. “ Al-Qaeda claims Jordan attacks” (10 November 2005) http://news.bbc.co.uk/1/hi/world/middle_

east/4423714.stm Reference detailing Jordan Hotel bombings is being researched for this endnote.
44. ww.ag.gov.au/agd/WWW/nationalsecurity.nsf/Page/What_Governments_are_doing_Listing_of_Terrorism_
w
Organisations_Salafist_Group_for_Call_and_Combat
45. www.state.gov/s/ct/rls/crt/2007/103714.htm
46. arc Sageman, Understanding Terror Networks (Philadelphia: University of Pennsylvania Press, 2004), p.44 and
M
114
End notes Page 167

47. T ore Bjorgo and John Horgan (eds), Leaving Terrorism Behind (Oxon: Routledge, Taylor and Francis Group, 2009),
p.198
48. http://travel.state.gov/travel/cis_pa_tw/tw/tw_918.html
49. ee for example extracts from Ayman Al-Zawahiri “Knights Under the Prophets Banner” published in Gilles
S
Kepel and Jean-Pierre Milelli (eds), Al Qaeda in its own words (Cambridge Mass and London: Harvard, 2008),
pp.193–194.
50. “ Many dead in Moscow metro blast” (February 2004) http://news.bbc.co.uk/1/hi/world/europe/3464545.stm

and “Chechen Terror Haunts Russia” (September 2004) http://news.bbc.co.uk/1/hi/world/europe/3605252.
stm
51. www.state.gov/s/ct/rls/crt/2007/103714.htm
52. www.history.com/this-day-in-history.do?action=Article&id=7059
53. T he “Military Wings” of Hamas (izz-zl-Din al Qassem) IDZ) and Hizballah (Hizballah External Security
Organisation (ESO)) brigades (IDQ) were proscribed in March 2001. In July 2008 the Government laid an Order
in Parliament (approved as Statutory Instrument 2008/1931) to proscribe the entirety of Hizballah’s military
wing including the Jihad Council and all units reporting to it (including the Hizballah External Security
Organisation) in substitution for the existing entry “Hizballah External Security Organisation”. This means that it
is a criminal offence to belong to, fundraise and encourage support for the military wing of Hizballah however
the legitimate political, social and humanitarian role Hizballah plays in Lebanon is unaffected by the ban.
54. ww.independent.co.uk/news/obituaries/imad-mougnieh-elusive-hizbollah-leader-783070.html and Augustus

w
R. Norton, Hezbollah, A Short History (Princeton: Princeton University Press, 2007), pp.42, 73, 77, 79 and 116
Section 2 – The impact on the UK

55. http://news.bbc.co.uk/onthisday/hi/dates/stories/february/14/newsid_2541000/2541149.stm
56. www.timesonline.co.uk/tol/news/world/article531110.ece
57. “The battle for the mosque” (February 2006) http://news.bbc.co.uk/1/hi/uk/4639074.stm
58. “ Pair plotted ‘terrorist’ explosions” (January 2002) http://news.bbc.co.uk/1/hi/england/1766233.stm and

Eliza Manningham-Buller, “The International Terrorist Threat to the UK” in Peter Hennessy (ed), The New
Protective State (London: Continuum, 2007), p.67. Kashmiri guerrilla fighters Jaish-e-Mohammed named Bilal
Ahmed, 24 from Birmingham, as the bomber that packed a stolen car with explosives before blowing himself up
outside an Indian army barracks in Srinagar, see “British Muslims take path to Jihad” (December 2000) at
www.guardian.co.uk/uk/2000/dec/29/kashmir.race Four Algerians were convicted by a Frankfurt Court in
March 2003 of offences relating to a planned attack on the Strasbourg market on New Year’s Eve 2000, see
“Four convicted of Strasbourg bomb plot” (March 2003) at www.guardian.co.uk/world/2003/mar/10/germany.
france
59. ichard Reid was arrested in Boston, USA on 22 December 2001, after his flight from Paris to Miami was
R
diverted there; in early 2003 he was sentenced to life imprisonment for attempting to destroy a commercial
airliner in flight.
60. Saajid Badat was arrested in November 2003, still in possession of an own explosive device; in February 2005
he pleaded guilty to conspiring to place a device on an aircraft in service and was sentenced to 13 years in
prison.
61. Seth Jones and Martin Libicki, How Terrorist Groups End (Santa Monica: Rand Corporation, 2008), p.132
62. In September 2005, Andrew Rowe was sentenced to 15 years, reduced to 10 years on appeal, for possessing
articles for use in terrorism.
63. In June 2004, Kamel Bourgass was sentenced to life imprisonment for the murder of DC Stephen Oake. In April
2005, he was also convicted of conspiracy to cause a public nuisance by the use of poisons and/or explosives
to cause disruption, fear or injury and sentenced to 17 years in what became known as the Ricin case.
64. sif Hanif carried out a suicide attack on Mike’s Place, a beachfront bar in Tel Aviv, on 30 April 2004; the body
A
of Omar Sharif was found in the sea off a Tel Aviv beach on 12 May.
65. peration CREVICE, which took place between 2003–04, was an investigation into a plot to cause explosions
O
in London. At the time, Operation CREVICE was the largest counter-terrorism operation ever seen in the UK. On
30 April 2007, five individuals were found guilty of conspiracy to cause explosions. On 23 July 2008, the Court
of Appeal published their judgement upholding the convictions of these five individuals.
66. peration RHYME was an investigation into an alleged cell planning attacks on buildings in the UK and the
O
United States. Possible targets included the IMF and World Bank buildings as well as the New York Stock
Exchange. The cell also considered using a radioactive bomb and had plans to blow up three limousines packed
with gas cylinders and explosives next to or under targets in the UK. Their leader, Dhiren Barot, pleaded guilty on
7 November 2006 and was sentenced to 40 years imprisonment, later reduced to 30 years on appeal. In 2007,
six other defendants pleaded guilty to conspiracy to cause explosions and received sentences of between 15
and 26 years. A further defendant was convicted of conspiracy to murder and received a 15-year sentence.
67. “ Our shared values – a shared responsibility” a speech by the Home Secretary, Jacqui Smith, at the First
International Conference on Radicalisation and Political Violence (January 2008); available at http://press.
homeoffice.gov.uk/Speeches/sp-hs-terrorism-keynote-jan-08
68. eport of the Official Account of the Bombings in London on 7th July 2005 (London: The Stationery Office,
R
2006); available at www.official-documents.gov.uk/document/hc0506/hc10/1087/1087.pdf
69. “Missile plot Briton sent to jail” (April 2007) http://news.bbc.co.uk/1/hi/uk/6206886.stm
70. “Terror mission ‘aborted’ by death” (September 2008) http://news.bbc.co.uk/1/hi/uk/7636214.stm
71. www.cps.gov.uk/news/pressreleases/187_08.html
72. T he Birmingham based network in Operation GAMBLE purchased and supplied items for use in acts of terrorism
abroad. The principal defendant, Parviz Khan, was also suspected of engaging in conduct to give effect to his
intention to kidnap and kill a member of the British Armed Forces. The trial ended in February 2008 when four
men pleaded guilty and one individual was found guilty. Two of the individuals pleaded guilty to offences relating
to the plot, the others with other terrorist-related offences.
73. L ondon/Glasgow incident June 2007: In the early hours of 29 June 2007 two Vehicle Borne Improvised
Explosive Devices (VBIEDs) were found in Central London and subsequently made safe. The following day there
was a VBIED attack on Glasgow Airport. One of the attackers later died as a result of injuries sustained in the
attack on the airport. On 11 April 2008, Sabeel Ahmed pleaded guilty to failure to disclose information in
relation to a terrorist attack. He was sentenced to 18 months imprisonment but due to time spent on remand,
was handed to UKBA for administrative removal to India. On 16 December 2008, Bilal Abdullah was convicted
of conspiracy to cause explosions and conspiracy to murder. He was sentenced to life imprisonment with a
recommended minimum tariff of 32 years.
74. T he Government will shortly be publishing a Statistical Bulletin which will provide further details relating to the
numbers arrested for terrorism-related offences in the UK and the outcome of those arrests. The statistics
have been compiled using administrative data collected by the National Coordinator of Terrorism Investigations,
the Crown Prosecution Service, the Prison Service and OSCT.
Section 3 – The current threat to the UK

75. “Madrid Bombings: Defendants” (July 2008) http://news.bbc.co.uk/1/hi/world/europe/4899544.stm
76. aniel Benjamin and Steven Simon, The Next Attack – The Globalisation of Jihad (London: Hodder and
D
Stoughton, 2005), p.88
77. utch National Coordinator for Counterterrorism (NCTb) , Salafism in the Netherlands (The Hague: The National
D
Coordinator for Counterterrorism 2008), p.39 available at http://english.nctb.nl/Images/Salafism%20UK_
tcm51-120948.pdf; the Dutch Ministry of Justice website has further details: www.om.nl
78. www.timesonline.co.uk/tol/news/uk/crime/article5619151.ece
Section 4 – How the terrorist threat has changed

79. T he NATO definition of Insurgency is ‘An organised movement aimed at the overthrow of a constituted
government through use of subversion and armed conflict’. See NATO AAP-6 (2006) available at www.nato.int/
docu/stanag/aap006/aap6.htm
80. For example, extracts from Ayman Al Zawahiri “Knights Under the Prophets Banner”, published in Gilles Kepel
and Jean-Pierre Milelli (eds) Al Qaeda in its own words (Cambridge Mass and London: Harvard, 2008), p.193.
81. ee the 2007 lecture by Peter Clarke, formerly Assistant Commissioner Special Operations and National
S
Coordinator for Terrorist Investigations at the Metropolitan Police; available at http://cms.met.police.uk/news/
major_operational_announcements/terrorism/dac_peter_clark_s_speech_on_counter_terrorism
Section 5 – Strategic factors

82. aniel Benjamin and Steven Simon, The Next Attack – The Globalization of Jihad (London: Hodder and
D
Stoughton, 2005), pp.42–43.
83. F und for Peace and Foreign Policy, “Failed States Index 2008”, Foreign Policy, August/September 2008;
available at www.foreignpolicy.com/story/cms.php?story_id=4350
84. eth Jones and Martin Libicki, How Terrorist Groups End, Lessons for Countering Al Qa‘ida (Santa Monica:
S
RAND Corporation, 2008), p.99; available at www.rand.org/pubs/monographs/2008/RAND_MG741-1.pdf
85. Ibid, p.138
86. mel Boubekeur, “Political Islam in Europe”, in Samir Amghar, Amel Boubekeur and Michael Emerson (eds.),
A
European Islam Challenges For Society And Public Policy (Brussels: Centre for European Policy Studies, 2007),
p.19; available at http://shop.ceps.eu/BookDetail.php?item_id=1556
87. See Bruce Lawrence (ed), Messages to the World: the statements of Osama bin Laden (London: Verso, 2005) and
Gilles Kepel and Jean-Pierre Milelli (eds) Al Qaeda in its own words (Cambridge Mass and London: Harvard, 2008).
End notes Page 169

88. T he Interim Report of the IPPR Commission on National Security in 21st Century, Shared Destinies, Security In
A Globalised World (2008), p.63; available at www.ippr.org.uk/publicationsandreports/publication.asp?id=636
and RAND – MIPT Terrorist Incident Database (2007) and RAND Terrorism Chronology (1997); available at www.
rand.org/ise/projects/terrorismdatabase
89. illes Keppel, Beyond Terror and Martyrdom (Cambridge Mass. and London: Harvard University Press, 2008),
G
p.89
90. aniel Benjamin and Stephen Simon, The Next Attack – The Globalization of Jihad (London: Hodder and
D
Stoughton, 2005), pp.59-65; and Gabriel Weimann, Terror on the Internet: the New Arena, the New Challenge
(US Institute of Peace, 2006); and The Dutch National Coordinator for Counterterrorism Jihadis and the internet
(The Hague: National Coordinator for Counterterrorism, 2007).
91. ernard Finel and Holly Gell, Are we Winning?: Measuring Progress in the Struggle Against Violent Jihadism,
B
(American Security Project Report, 2008), p.11; available at www.americansecurityproject.org/files/ASP_
AWW2008.pdf
92. tephen Kull, Muslim Public Opinion on US Policy, Attacks on Civilians and al Qaeda (University of Maryland:
S
World Public Opinion.org, 2007) pp.5–6; available at www.worldpublicopinion.org/pipa/pdf/apr07/START_
Apr07_rpt.pdf
93. J ohn Esposito and Dalia Mogahed, Who Speaks for Islam? What a Billion Muslims Really Think (New York:
Gallup Press, 2007), p.91
94. Ibid pp.73–98; and Studies in Terrorism and Responses to Terrorism (START), University of Maryland.
95. tephen Weber, Perceptions of the US and Support for Violence against America (University of Maryland START,
S
2006), p.2; available at www.start.umd.edu/start/publications/research_briefs/20061120_pipa.pdf
96. aveed Ahmad Shinwari, Understanding FATA, Attitudes towards Governance, Religion And Society in Pakistan’s
N
Federally Administered Tribal Areas (Pakistan: Community Appraisal And Motivation Programme, 2008), p.43
available at www.understandingfata.org/files/CHAPTER%203.pdf
97. F or example in Egypt, Algeria and Palestine; see Gilles Kepel, Jihad: On the Trail of Political Islam (London: I.B.
Tauris & Co, 2002), pp.154–1555, 159, 166–167 and 289.
98. T ufyal Choudhury, The Role of Muslim Identity and Politics in Radicalisation (a study in progress) (London:
Department for Communities and Local Government, 2007), p.6; available at www.communities.gov.uk/
documents/communities/pdf/452628.pdf; and on recent classified UK Government research.
99. uintan Wiktorowicz, Radical Islam Rising, Muslim Extremism in the West (New York: Rowman & Littlefield,
Q
2005), p.91; the reference is to Muhajiroun.
100. dwin Bakker, Jihadi terrorists in Europe: their characteristics and the circumstances in which they joined the
E
jihad: an exploratory study (Clingendael Security Paper, The Hague: Clingendael Institute, 2006), p.40; available
at www.clingendael.nl/publications/?id=6480&&type=summary
101. T ufyal Choudhury, The Role of Muslim Identity and Politics in Radicalisation (a study in progress) (London:
Department for Communities and Local Government, 2007), p.6 and 29; available at www.communities.gov.uk/
documents/communities/pdf/452628.pdf Quintan Wiktorowicz, Radical Islam Rising, Muslim Extremism in the
West (New York: Rowman & Littlefield, 2005), p.99
102. ew Global Attitudes Project, Unfavourable views of Jews and Muslims on the increase in Europe (2008), p.4
P
available at http://pewglobal.org/reports/pdf/262.pdf
103. orldPublicOpinion.Org Program on International Policy Attitudes, Muslim Public Opinion on US Policy, Attacks
W
on Civilians and al Qaeda (University of Maryland, 2007), p.14; available at www.worldpublicopinion.org/pipa/
pdf/apr07/START_Apr07_rpt.pdf
104. J ohn Esposito and Dalia Mogahed, Who Speaks For Islam? What A Billion Muslims Really Think (New York:
Gallup Press, 2007), p. 69. This polling was conducted between 2001 and 2007.
105. orldPublicOpinion.Org Program on International Policy Attitudes, Muslim Public Opinion on US Policy, Attacks
W
on Civilians and al Qaeda (University of Maryland, 2007), pp.7 and 21–22; available at www.worldpublicopinion.
org/pipa/pdf/apr07/START_Apr07_rpt.pdf
Section 6 – The future

106. T his paragraph draws on Seth Jones and Martin Libicki, How Terrorist Groups End Lessons For Countering Al
Qa‘ida (Santa Monica: RAND Corporation, 2008), pp.xiv–xv; available at www.rand.org/pubs/
monographs/2008/RAND_MG741-1.pdf
107. The Interim Report of the IPPR Commission on National Security in 21st Century, Shared Destinies, Security In
A Globalised World (London: IPPR, 2008), p.57; available at www.ippr.org.uk/publicationsandreports/
publication.asp?id=636
108. F or example: BBC World Service Poll, US ‘War on Terror’ Has Not Weakened al Qaeda (2008), p. 16; available at
www.worldpublicopinion.org/pipa/pdf/sep08/BBCAlQaeda_Sep08_rpt.pdf and Pew Global Attitudes Project,
The Great Divide: how Westerners and Muslims view each other (2006), pp.23–26; available at http://www.
pewglobal.org/reports/pdf/253.pdf; and ICM poll for the Sunday Telegraph (2006)); available at http://www.
icmresearch.co.uk/pdfs/2006_february_sunday_telegraph_muslims_poll.pdf#search=”telegraph 2006”
109. ee Gilles Kepel, Beyond Terror and Martyrdom (Cambridge, Mass. and London: Harvard University Press,
S
2008), pp.160-171.
110. For further background see Lawrence Wright, ‘The Rebellion Within’, The New Yorker, 2 June 2008 available at
www.newyorker.com/reporting/2008/06/02/080602fa_fact_wright.
Part 2 The CONTEST Strategy

Section 7 – The UK strategy for countering international terrorism
111. Countering International Terrorism: The United Kingdom’s Strategy Cm6888 (London: The Stationery Office,
2006); available at www.official-documents.gov.uk/document/cm68/6888/6888.pdf
112. The National Security Strategy of the United Kingdom: Security in an interdependent world Cm7291 (London:
The Stationery Office, 2008); available at www.official-documents.gov.uk/document/cm72/7291/7291.pdf
113. Ibid, pp.10-11
114. Ibid, p.6, paragraph 2.1
Section 8 – Pursue
115. CPOS CTIU is supported by the Strathclyde Police Major Crime and Terrorism Investigation Unit, formed in
A
2008 to investigate proactively counter-terrorism matters in the force area.
116. European Court of Human Rights; Plenary Court judgment (Strasbourg, Jul 1989): Soering v. The United
Kingdom [1989] (Application no. 14038/88) 11 EHRR 439
117. uropean Court of Human Rights; Grand Chamber judgment (Strasbourg, Nov 1996): Chahal v. The United
E
Kingdom [1996] (Application no. 22414/93) 23 EHRR 413
118. European Court of Human Rights; Grand Chamber judgment (Strasbourg, Jul 2006 and Jan 2008 ): Saadi v. The
United Kingdom [2006/2008] (Application no. 13229/03)
119. House of Lords Judgment (House of Lords, Feb 2009): RB (Algeria) and another v. Secretary of State for the
Home Department; OO (Jordan) v Secretary of State for the Home Department [2009] UKHL 10
120. L ord Carlile of Berriew QC, Fourth Report of the Independent Reviewer Pursuant to Section 14(3) of the
Prevention of Terrorism Act 2005 (London: Home Office Publications, Feb 2009) available at http://security.
homeoffice.gov.uk/news-publications/publication-search/prevention-terrorism-act-2005/lord-carlile-fourth-
report.pdf?view=Binary
121. s at 10 December 2008, 23 individuals had been at some point, but were no longer, subject to a control
A
order. Of these: six have been deported, three were held in custody or granted bail having been served notices
of intention to deport; four individuals had their control orders revoked and two individuals did not have their
orders renewed as our assessment of the necessity of those orders changed; one individual absconded after
the Court of Appeal confirmed the quashing of his order but before a new order could be served; two individuals
had their control orders quashed by the High Court; the control orders of five individuals expired but those five
individuals had absconded.
122. T he Act does not cover acquisition, retention and use of forensic data for devolved purposes in Scotland;
Scottish Ministers do not favour the permanent retention of forensic samples for non-convicted persons.
123. overt surveillance is investigative conduct likely to result in the obtaining of private information about a
C
person, such as their movements, conversations and other activities.
124. rivy Council Review, Privy Council Review of Intercept as Evidence; Report to the Prime Minister and the Home
P
Secretary (London: The Stationery Office, 2008), available at www.official-documents.gov.uk/document/
cm73/7324/7324.asp
125. M Treasury, Home Office, and Serious and Organised Crime Agency and Foreign and Commonwealth Office,
H
The financial challenge to crime and terrorism (February 2007), available at www.hm-treasury.gov.uk/fin_
challengecrime_terrorism.htm
126. ee Hansard HC Col 55WS (18 Mar 2009) www.publications.parliament.uk/pa/cm200809/cmhansrd/

S
cm090318/wmstext/90318m0001.htm
End notes Page 171

127. House of Lords Judgement (House of Lords, Dec 2005): A (FC) and others v. Secretary of State for the Home
Department (Respondent) (2004); and, A and others v. Secretary of State for the Home Department [2005]
UKHL 71; and, The evidence of the RtRT Hon Jack Straw MP to the Foreign Affairs Committee, Minutes of
Evidence taken before Foreign Affairs Committee on 13 December 2005: Question 28 (London: UK Parliament
Publications and Records, December 2005) available at www.publications.parliament.uk/pa/cm200506/
cmselect/cmfaff/c768-i/c76802.htm
128. Intelligence and Security Committee, Handling of Detainees by UK Intelligence Personnel in Afghanistan,
Guantanamo Bay and Iraq Cm6469 (London: The Stationery Office, 2005) available at www.cabinetoffice.gov.
uk/intelligence/special_reports.aspx
129. Intelligence and Security Committee, Report into Rendition Cm7171 (London: The Stationery Office, 2007)
available at www.cabinetoffice.gov.uk/intelligence/special_reports.aspx
130. Ibid
131. Intelligence and Security Committee, Annual Report 2007-2008 Cm7542 (London: The Stationery Office, 2009)
available at www.cabinetoffice.gov.uk/intelligence/special_reports.aspx
132. ee Hansard HC Col 547 (21 Feb 2008) www.publications.parliament.uk/pa/cm200708/cmhansrd/

S
cm080221/debtext/80221-0007.htm
133. ee Hansard HC Col 58WS (3 Jul 2008) www.publications.parliament.uk/pa/cm200708/cmhansrd/

S
cm080703/wmstext/80703m0002.htm
Section 9 – Prevent
134. www.communities.gov.uk/archived/general-content/communities/preventingextremismtogether/ 216937/
135. In order to build the resilience of communities where it is most needed, the distribution of funding to local
authorities has been is based on the size of local Muslim communities.
136. T he National Community Safety Plan (NCSP), 2006-2009, set out the Government’s three-year community
safety priorities, and explained the Home Secretary’s priorities for the police service. A revised National
Community Safety Plan, 2008-11, has now been published and is available at www.crimereduction.homeoffice.
gov.uk/activecommunities/activecommunities088.pdf
137. Scotland Ministers have also identified funding to progress the ACPOS Prevent Delivery plans.
138. www.communities.gov.uk/communities/communityempowerment/communitiesincontrol/
139. As identified and funded by CLG through the Pathfinder fund.
140. HM Government, The Prevent strategy: A guide for Local Partners in England (2008); available at http://security.
homeoffice.gov.uk/news-publications/publication-search/prevent-strategy/
141. eighbourhood Policing Teams work in partnership with other local agencies and with members of the
N
community to address local priorities in respect of crime and anti-social behaviour. Further information is
available at www.neighbourhoodpolicing.co.uk/
142. imilar indicators and associated guidance has been developed in Scotland and work is under way to integrate
S
these into Single Outcome Agreements.
143. www.hm-treasury.gov.uk/d/pbr_csr07_psa26.pdf
144. In Scotland the Scottish Preventing Violent Extremism Unit is taking forward delivery of equivalent objectives
against the Prevent strategy.
145. J ointly owned by the Home Office, FCO and CLG, the Research, Information and Communications Unit (RICU)
forms part of OSCT; its role is explained further at Section 15.
146. IUS, Learning Together to be Safe (February 2009) available at www.dius.gov.uk/consultations/~/media/

D
publications/17132_DIUS_Learning_Be_Safe and DIUS, The Role of Further Education Colleges in Preventing
Violent Extremism: Next Steps, (February 2009) www.dius.gov.uk/consultations/~/media/publications/17193_
DIUS_Next_Stepsl
147. ttp://www.dius.gov.uk/news_and_speeches/press_releases/~/media/publications/extremismhe and

h
http://www.dius.gov.uk/consultations/~/media/publications/17132_DIUS_Learning_Be_Safe
148. In order to build the resilience where it is most needed, priority establishments are determined by the size of
local Muslim communities.
149. www.everychildmatters.gov.uk/
150. T he Channel Project is a multi-agency approach to support vulnerable individuals. It is a local and community-
based initiative, which utilises existing partnership working between the police, local authority and the local
community. The project takes referrals from a number of sources on individuals that may be vulnerable to
becoming involved in violent extremism. A joint risk assessment of each individual case is then made by project
members and any issues of concern are identified. A programme of intervention tailored to the needs of the
individual is then developed and implemented. Involvement of community partners is key. They will have
expertise and insight into the process of assessment, referral and intervention.
151. “Longer sentences for al-Qaeda men” (December 2007) http://news.bbc.co.uk/1/hi/uk/7150641.stm
152. International Centre for the Study of Radicalisation and Political Violence, Recruitment and Mobilisation for the
Islamist Militant Movement in Europe (London: ICSR, King’s College London, 2008), p.52 available at http://
icsr.info/publications/papers/1234516791ICSREUResearchReport_Proof1.pdf
153. “ Computer terror teenager jailed” (September 2008) http://news.bbc.co.uk/1/hi/england/london/7625041.

stm
154. http://www.un.org/terrorism/pdfs/wg6-internet_rev1.pdf
155. The National Security Strategy of the United Kingdom: Security in an interdependent world, Cm 7291 (London:
The Stationery Office, 2008) pp.14- and p.15 available at www.official-documents.gov.uk/document/
cm72/7291/7291.pdf
Section 10 – Protect
156. www.cpni.gov.uk
157. www.nactso.gov.uk
158. www.imo.org/Newsroom/mainframe.asp?topic_id=897#what
159. rime Minister’s National Security Statement (14 November 2007) available at www.number10.gov.uk/
P
Page13757
160. www.ukba.homeoffice.gov.uk/sitecontent/documents/managingourborders/Policeandukbaengagement/
161. www.dft.gov.uk/pgr/security/crc/transportreviewsummary
162. www.fco.gov.uk/en/travelling-and-living-overseas/staying-safe/terrorism-abroad
163. ater is a devolved matter in Scotland and Northern Ireland. CPNI is working with the Devolved Administrations
W
of both Scotland and Northern Ireland on all aspects of water security.
164. http://files.homeoffice.gov.uk/police/policing_green_paper.pdf
Section 11 – Prepare
166. ww.skillsforjustice.com/template01.asp?pageid=594 and www.bsi-global.com/en/Assessment-and-
w
certification-services/management-systems/Standards-and-Schemes/BS-25999/
167. www.ukresilience.gov.uk/response/ukgovernment/cgert.aspx
168. www.ukresilience.gov.uk/preparedness/ccact/errpdfs.aspx
169. www.dh.gov.uk/en/Publicationsandstatistics/Publications/PublicationsPolicyAndGuidance/DH_073395
170. The National Security Strategy of the United Kingdom: Security in an interdependent world Cm 7291 (London:
The Stationery Office, 2008) p.42, paragraph 4.59 available at www.official-documents.gov.uk/document/
cm72/7291/7291.pdf
171. www.ukresilience.gov.uk/media/ukresilience/assets/defenceconrtibution1.pdf
172. www.nactso.gov.uk/hotelsandrestaurants.php
173. T he National Security Strategy of the United Kingdom: Security in an interdependent world Cm 7291 (London:
The Stationery Office, 2008), p.43, paragraph 4.61; available at http://www.official-documents.gov.uk/
document/cm72/7291/7291.pdf
174. http://archive.cabinetoffice.gov.uk/pittreview/thepittreview.html
175. ational Risk Register (Cabinet Office, 2008): available at www.cabinetoffice.gov.uk/reports/national_risk_

N
register.aspx
End notes Page 173

Section 12 – CBRNE
176. “A Muslim Bomb” in Bruce Lawrence (Ed) Messages to the World: the statements of Osama bin Laden (London:
Verso, 2005), p.72
177. Prime Minister’s Speech on the threat of global terrorism (5 March 2004) www.number10.gov.uk/Page5461
178. “Al-Qaeda ‘planned US cyanide hit’” (June 2006) http://news.bbc.co.uk/1/hi/world/americas/5092228.stm
179. “Al-Qaeda plotter jailed for life” (November 2006) http://news.bbc.co.uk/1/hi/uk/6123236.stm
180. T he Middle East Media Research Institute (MEMRI), Special Dispatch 1309 (2006) available at www.memri.
org/bin/articles.cgi?Page=subjects&Area=iwmp&ID=SP130906
181. “Iraqis killed by chlorine bombs” (March 2007) http://news.bbc.co.uk/1/hi/world/middle_east/6461757.stm
182. Report of a Committee of Privy Counsellors, Review of Intelligence on Weapons of Mass Destruction (London:
The Stationery Office, 2004), p.29-36 available at www.archive2.official-documents.co.uk/document/deps/hc/
hc898/898.pdf
183. www-ns.iaea.org/security/itdb.htm
184. eport of a Committee of Privy Counsellors, Review of Intelligence on Weapons of Mass Destruction (London:
R
The Stationery Office, 2004), p.17-19 available at www.archive2.official-documents.co.uk/document/deps/hc/
hc898/898.pdf
185. www.berr.gov.uk/whatwedo/energy/non-proliferation/global-threat-reduction/index.html
186. www.hse.gov.uk/nuclear/ocns/index.htm and www.cnc.police.uk
187. www.defra.gov.uk/gds

Section 13 – Managing delivery
188. LG, Preventing Violent Extremism: Winning Hearts and Minds (April 2007) available at www.communities.gov.
C
uk/publications/communities/preventingviolentextremism and HM Government, The Prevent Strategy: A guide
for Local Partners in England (May 2008) available at http://security.homeoffice.gov.uk/news-publications/
publication-search/prevent-strategy/ Preventing Violent Extremism: Winning Hearts and Minds, published April
2007 www.communities.gov.uk/publications/communities/preventingviolentextremism
189. www.hm-treasury.gov.uk/d/pbr_csr07_psa26.pdf
Section 14 – Delivery partnerships

190. rotective services include: counter-terrorism; serious and organised crime; civil contingencies and emergency
P
planning; critical incident management; major crime; public order; strategic roads policing and protecting
vulnerable people.
191. art 1 of the Act applies to Scotland, with the powers it sets out residing with Scottish Ministers in line with the
P
devolution settlement. While civil protection in Scotland is largely a devolved matter and therefore the
responsibility of the Scottish MinistersExecutive, certain responders in Scotland are subject to Part 1 of the
Act. Civil protection in Northern Ireland is largely a devolved matter, with functions being exercised by the
Northern Ireland departments. Some functions are not devolved and are delivered in Northern Ireland by bodies
that fall within the remit of the UK Government.
192. http://security.homeoffice.gov.uk/news-publications/publication-search/general/science-innovation-strategy1
193. www.hmgcc.gov.uk/default.aspx
Printed in the UK for The Stationery Office Limited on behalf of the Controller of Her Majesty’s Stationery Office
ID 6072968 03/09 Printed on Paper containing 75% recycled fibre content minimum.
End notes Page 175
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The United Kingdom’s Strategy

This is a corrective reprint incorporating the changes

﻿Cm 7547 £34.55

The text in this document (excluding the Royal Arms and

The United Kingdom’s Strategy for Countering International Terrorism Page 4

The United Kingdom’s Strategy for

Foreword: Prime Minister

Part 1 Strategic context

Part 2 The contest Strategy

Part 3 Delivering contest

Annex A: PSA outcomes

The Rt Hon Gordon Brown MP Prime Minister

The first priority of any Government is to ensure the security

While recent events have shown, tragically, that the threat

The United Kingdom’s Strategy for Countering International Terrorism Page 6

The Rt Hon Jacqui Smith MP Home Secretary

I am very pleased to publish this new version of the

One of the primary duties of Government is to keep our

Working across government departments, CONTEST is one of the most comprehensive

Since 2003, we have had a comprehensive strategy in place

We believe that to date the strategy has achieved its

We have now revised this strategy to take account of the

This is the first time we have published this strategy in such

The document begins with an executive summary which is

The United Kingdom’s Strategy for Countering International Terrorism Page 8

This part of the document also describes the four main

The document concludes with a section explaining the

In March 2007 the Prime Minister made the Home Secretary

Introduction 0.4 A new form of terrorism emerged

The United Kingdom’s Strategy for Countering International Terrorism Page 10

Executive summary Page 11

The United Kingdom’s Strategy for Countering International Terrorism Page 12

Executive summary Page 13

The United Kingdom’s Strategy for Countering International Terrorism Page 14

Executive summary Page 15

The United Kingdom’s Strategy for Countering International Terrorism Page 16

Executive summary Page 17

The United Kingdom’s Strategy for Countering International Terrorism Page 18

Strategic context Page 21

The terrorist threat to the UK is not new. In the

Subsequent Al Qa‘ida attacks culminated in the events of September 11, 2001.

The United Kingdom’s Strategy for Countering International Terrorism Page 22

1.01 Terrorism is not new. In the International terrorism

Strategic context Page 23

The United Kingdom’s Strategy for Countering International Terrorism Page 24

Strategic context Page 25

Hizballah and Iran

1.21 Hizballah was established in

The United Kingdom’s Strategy for Countering International Terrorism Page 26

By the early nineties some propagandists for

Al Qa‘ida recruited people from the UK and

Since 2001 the police and Security Service have

The United Kingdom’s Strategy for Countering International Terrorism Page 28

2.01 The impact of militant Islamism on to attack US military targets in France

Strategic context Page 29

The United Kingdom’s Strategy for Countering International Terrorism Page 30

The threat to the UK (and to many other countries)

All these groups respond to local challenges and

Cm 7547 £34.55

Part 1 Strategic context

Part 2 The contest Strategy

Part 3 Delivering contest