The Austrian Strategy for the Prevention and Countering of Violent Extremism and De-radicalisation
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The Austrian Strategy
for the Prevention and
Countering of Violent
Extremism and
De-radicalisation// PREFACE
Radicalisation and extremism pose a major threat de-radicalisation in Austria. Federal ministries, civil
for Austria, as they jeopardise the national security. organisations and the federal provinces are the
For this reason, it is of particular concern to me members of BNED.
in my function as Minister of the Interior to take
appropriate and effective counter measures in this The “Austrian Strategy for the Prevention and
context. Countering of Violent Extremism Prevention and
De-radicalisation” substantiates the “fight against
In order to inhibit radicalisation from arising in the subversive extremism and subversive radicalisation”,
first place and to promote de-radicalisation, it is as it is laid down in the government programme
particularly necessary to enact preventive measures 2017-2022. It supports the development of
alongside the repressive measures, which are only interdisciplinary prevention and de-radicalisation
taken when concrete threats arise. The Austrian measures in the fields of internal security and
security authorities have adopted a national integration in Austria.
approach in order to strengthen the interdisciplinary
prevention and de-radicalisation measures. I am particularly pleased that around 70 members
of BNED as well as experts from various areas of
The present “Austrian Strategy for the Prevention society have been involved in the preparation of this
and Countering of Violent Extremism and De- strategy. It is a testimony of the great willingness to
radicalisation” marks a milestone in this context. address radicalisation and extremism at a national
It is the first time that a nationally developed and level and to meet these challenges together. The
coordinated strategy on handling radicalisation and present strategy is an essential cornerstone in this
extremism is available. This strategy is intended to context.
serve as an incentive and guide for all actors involved
in prevention and de-radicalisation work in Austria. I would like to sincerely thank all actors involved
in compiling this strategy and I look forward to our
The “National Network for Prevention and continued excellent co-operation.
Countering Violent Extremism and De-radicalisation”
(BNED), founded by the Federal Ministry of the Herbert Kickl
Interior in summer 2017 and coordinated by the Federal Ministry of the Interior
Federal Agency for State Protection and Counter
Terrorism, marked the starting point for this strategy.
The BNED provides an overview on the respective
strategies and pools the single measures of all actors
working in the field of extremism prevention and// HISTORICAL BACKGROUND In a reaction to growing radicalisation and
recruitment tendencies in Austria, an increasing
number of prevention and radicalisation measures
all members of the Federal Network interested in
this task. Moreover, external experts from the fields
of research, civil society, people with practical
were taken in Austria over the last couple of years. experience, organisations, etc. were integrated into
the creation process.
One major step was founding the “National Network
for Prevention and Countering Violent Extremism The present strategy is a general and broad approach
and De-radicalisation” (BNED) and including as many meant to be a guideline and offer orientation
relevant players as possible, in order to regularly to all Austrian actors dealing with the topics of
exchange views on current questions concerning preventing violent extremism and de-radicalisation.
prevention and countering of violent extremism as Based on the present strategy, measures for the
well as de-radicalisation work. It is the aim of this most important aspects of Austrian prevention
network, to establish and legitimise new measures and de-radicalisation work will subsequently
throughout Austria by adopting a national approach. be substantiated, the aim being to reinforce the
strategic concept outlined in this present document
At the request of BNED members, the Austrian by practical solutions.
Federal Ministry of the Interior (BMI) in its function
as initiator and coordinator of the network
initiated a process aimed at developing an
Austrian Strategy on “Prevention and Countering
of Violent Extremism and De-radicalisation”. This
was the first measure taken by BNED. Compared
to international standards, Austria is one of the
few countries which had not had such an official
PVE/CVE strategy. This situation has been changed
by the present document. The fact that a large
number of actors were included into the developing
process emphasises the intention to view extremism
prevention and de-radicalisation as an issue which
concerns society as a whole.
This Austrian Strategy was developed in the course
of a participative and transparent process involving// SUMMARY The “Austrian Strategy for the Prevention
and Countering of Violent Extremism and De-
radicalisation” pools experiences and handling
context are human rights and the protection of
human dignity, the diversity of a democratic society
and the values of coexistence negotiated within a
practices of various occupational groups who society, such as respect, freedom of opinion, freedom
are familiar with the subject of “PVE/CVE and from violence and a high level of individual freedom
de-radicalisation” and it shall make a significant rights. Any ideology which approves violence and
contribution to developing a responsible way of rejects human rights and democratic values poses
dealing with this topic. The present document a risk to social cohesion. Thus, the central focus for
concentrates on all forms of extremism and all players entrusted with extremism prevention
describes individual areas of activity that are and de-radicalisation work in Austria is to counter
particularly relevant for preventing violent extremist tendencies with all determination, without
extremism and de-radicalisation work. undermining the guidelines defined in the present
strategy.
Extremism originates from radicalisation processes
which can make individuals susceptible to an When compiling the present strategy, Austria
extremist ideology, finally causing them to use used a large number of international and EU
violence as a means for reaching their goals. This recommendations for orientation. Exemplary in
challenge can be countered by PVE/CVE and de- this context are the “United Nations Global Counter
radicalisation, which are comprehensive tasks, since Terrorism Strategy” from 2015, the EU directive
all forms of extremism strive to weaken democracy “Preventing Radicalisation to Terrorism and Violent
and the constitutional state and they mostly are Extremism: Strengthening the EU's Response” from
co-dependent. Thus, in order to be able to meet this 2014 and a “Policy Paper” by the “Radicalisation
challenge, it seems absolutely necessary to find a Awareness Network” (RAN) on the subject of
solution involving society as a whole. It requires the “Development of a local prevention framework and
co-operation of a large number of various players guidelines”.
to be able to view and analyse the reasons for
radicalisation from different perspectives and to The core concepts concerning extremism prevention
resolutely counter them. and de-radicalisation were included into the strategy,
based on international and European documents.
Successful PVE/CVE and de-radicalisation work in The term “extremism” has been defined broadly and
Austria is based on the fundamental principles of generally refers to all forms of extremism.
the constitutional state and must serve as the basis
for all players involved. The essential basis in this
6 \\ // 7// SECURITY, THE PENAL SYSTEM AND the possibility to take part in social processes creates required in this context must be guaranteed on market, and by doing so, can significantly contribute
RESOCIALISATION a feeling of belonging to an open and democratic a sustainable basis. Moreover, spaces have to be to the prevention of radicalisation and extremism.
society. Such a society stands united against anti- created, where the players involved can exchange Moreover, increased promotion of qualification offers
Violent extremism in all its manifestations poses a democratic and extremist forces and has enough target-oriented information. and employment promotion can create perspectives
considerable threat to the Austrian society. Apart resilience to also meet the challenges of the future. for disadvantaged, marginalised individuals and
from the security authorities, which play a key role Setting up a central point of coordination against groups. Hence, the sense of social security and social
in repression, preventive measures have increased radicalisation and extremism would be an effective integration is strengthened, which, in turn, removes
in importance. In order to reinforce the aspect of // CO-OPERATION AND RESOURCES approach for offering the widest possible range the basis for politically radical arguments, making a
prevention, co-operation of all institutions relevant of awareness-raising measures and trainings contribution to combatting marginalisation that way.
in this field is necessary. One essential objective of In order to be able to counter extremist ideologies, concerning radicalisation and extremism to a broad
a macrosocial approach to fight extremism is the networking and co-operation is not only necessary target group and to support individuals prone to
prevention of criminal acts and the containment of on an international level but also on the national radicalisation in the best possible way and in due // SOCIAL RESPONSIBILITY AND HEALTH
radicalisation processes preceding relevant offences, level. Mutual solidarity and co-operation is needed time. There is widespread agreement that raising
and thus, threatening social cohesion in Austria. between the federal government, the federal awareness concerning subjects like extremism and When analysing the reasons for radicalisation,
provinces and the communities. Responding to terrorism is the basis at all levels for taking effective exclusion mechanisms based of a societal and
In order to guarantee resilience of the population the challenge of guaranteeing a stable democratic counter measures. structural nature have to be considered. Social
and the state to radicalisation and extremism in the society in order to maintain social peace means responsibility and health comprise areas such as
best way possible, it is necessary, on the one hand, to that this aim needs to be continuously pursued, a the labour market, professional education, the
have national authorities, which, according to their large amount of commitment has to be displayed // EDUCATION, LABOUR MARKET AND social security system, child and youth welfare,
protective function, effectively and proactively react so that the dialogue between all players involved is RESILIENCE social work at schools, youth work as well as health
to possible offences, so that the desired effect caused promoted. promotion and health care. Likewise, different forms
by extremist offences cannot be brought about. On of discrimination, on grounds of an individual’s sex or
Education, be it either formal or non-formal, can
the other hand, it is necessary to continue adopting Federal networks have proven to be appropriate gender identity, sexual orientation, origin or religion
considerably contribute to making individuals
the preventive macrosocial solution approach for the exchange between the federal ministries, are usually considered separately from each other.
more resilient to radicalisation and extremism. In
already initiated in Austria, alongside with practical the federal provinces and some specialist bodies When countering radicalisation and extremism, it
this context, education has to be understood in a
methods offering individuals a way out of extremist active across Austria. It would be a strong signal of is important to specifically focus on these societal,
broader sense, as vocational training or the transfer
environments. co-operation and jointly assumed responsibility, if social and health aspects.
of knowledge, since it offers the possibility to remove
the federal government, the federal provinces as
inequalities and to promote inclusion on the job
well as the cities and communities established the
market. // SCIENCE AND RESEARCH
// POLITICS AND DEMOCRATIC CULTURE respective networks in the near future by formulating
concrete objectives and establishing key activities One of the essential objectives of prevention
An inclusive education and labour market policy
Strengthening democracy and democratic awareness in order to guarantee continuous and consistent of violent extremism and de-radicalisation is to
supporting individuals in their abilities and needs
is one of the essential prerequisites for cracking extremism prevention and a targeted promotion develop a responsible way of dealing with extremist
can provide disadvantaged individuals with
down on extremism. Interest in social matters and of democracy and human rights. The resources ideologies and to pool the respective methods which
adequate access to education, training and the job
8 \\ // 9are based on experience and practical knowledge. at the prevention of violent extremism and de- Over the last years, Austria has taken a large
It is important to continue to analyse extremist radicalisation. number of initiatives and has set various actions to
tendencies and their causes and to formulate joint counter extremism. Therefore, thanks to a broad
solutions in order to adequately deal with this It is important to deal with extremist contents in understanding of prevention of violent extremism
complex subject. Threats have to be specifically dealt various media in a competent way. Both, technical and de-radicalisation and a co-operative interaction
with by applying secondary and tertiary prevention and sociopolitical measures have to be taken. For between the civil society players, official institutions,
measures, without condemning and stigmatising this purpose, international networks are required, security authorities and the federal provinces, we
individual groups of the population as a whole. since not only media providers but also some have arrived at an innovative and future-oriented
extremist players are active across borders. It is in approach. One of the essential prerequisites for
In order to be able to establish a systematic and this area that practical implementation, but also successful prevention work is the successful co-
interdisciplinary type of extremism research, which research measures must take a stand, in order to operation of a large number of players. In the
concentrates on a comprehensive examination of the guarantee that the respective measures can take years to come, it will be important to establish and
subject fields identified and which is able to produce effect. In addition, the respective authorities and consolidate these structures in order to be able to
knowledge-based inputs for practical and political internet service providers need to interact in order to continue to counter violent extremism by preventive,
use, the respective structures need to be created create standardised regulations, as far as the use of or, whenever necessary, by reactive measures.
first. the internet is concerned. In this context, the focus
shall not only be on the fact that the media increase
For this purpose, it could be useful to set up their competence but also on increasing their
a publicly accessible data base on extremist responsibility.
organisations and relevant results in this context.
However, another idea would be to establish an
independent, scientific competence centre to better // GENDER
coordinate research activities and to use scientific
resources and resources available to the authorities In the field of prevention of violent extremism
more efficiently. and de-radicalisation, the role of gender equality
is often regarded as only marginally important.
Radical groups partly take advantage of this fact.
// INTERNET AND THE MEDIA Apart from that, societies with higher gender
equality are more resilient to extremism. Hence, it
When analysing radicalisation processes, it becomes seems to be crucial to dedicate more attention to
clear that the media promote these processes in this subject in the prevention of violent extremism
many ways and can facilitate spreading extremist and de-radicalisation work and to consider it as an
positions. Likewise, the media can be used for interdisciplinary issue in all measures to be taken.
counter measures and alternative measures aimed
10 \\ // 11// TABLE OF CONTENTS // PREFACE................................................................................................................................... 3
// HISTORICAL BACKGROUND..................................................................................................... 4
// SUMMARY.................................................................................................................................. 6
// TABLE OF CONTENTS............................................................................................................... 12
1.1. Introduction.......................................................................................................................... 14
1.2. Guidelines for prevention of violent extremism and de-radicalisation in Austria.......... 16
1.3. International recommendations on prevention of violent extremism and de-radicalisation.. 18
1.4. Definition of terms............................................................................................................... 20
2. Security, the penal system and resocialisation.................................................................... 23
3. Politics and democratic culture............................................................................................. 29
4. Co-operation and resources................................................................................................... 33
5. Education, labour market and resilience.............................................................................. 38
6. Social responsibility and health............................................................................................. 42
7. Science and Research............................................................................................................. 46
8. Internet and the media........................................................................................................... 48
9. Gender...................................................................................................................................... 51
// REFERENCES............................................................................................................................ 54
// LEGAL NOTICE.......................................................................................................................... 58
12 \\ // 131.1. INTRODUCTION individuals with practical experience in prevention // PREVENTION OF VIOLENT EXTREMISM many ideologies. Their ideas focus on feelings such
of violent extremism and de-radicalisation work AND DE-RADICALISATION AS COMPLEX as fear, mistrust and rejection. Sustainable strategies
as well as scientists agree upon the fact that and raising awareness in all sectors of society are
Extremism in all its manifestations causes TASKS
concern across Europe and is seen as a major different influencing factors can mutually intensify necessary to reduce the operative ability to act
challenge. The population, the constitutional radicalisation processes and affect their course. and the geographical scope of extremist/terrorist
What all forms of extremism have in common is
system as well as the institutions and bodies of a This is reflected in the wide variety of requirements associations.
their negative attitude towards the democratic
democratic state and community can be impaired imposed on prevention of violent extremism and de-
constitutional state. Fundamental democratic
or paralysed by extremism, terrorist acts (as a radicalisation work. Security authorities, people with practical
principles, such as the plurality of interests, the
method of extremist actors) and hate crimes. experience in prevention of violent extremism and
multiparty system as well as the right to opposition
There is broad consensus that curbing extremism de-radicalisation work as well as representatives
are being negated. Extremist groups pose a particular
The “National Strategy for Prevention of Violent in all its manifestations and containing its causes from the field of science have determined numerous
challenge to the democratic order. These groups are
Extremism and De-Radicalisation” contributes to pose a challenge not be met by repressive methods challenges and threats which are relevant for
based on anti-democratic ideologies, whose aim is to
structuring and sustainably tackling this challenge. alone. On the contrary, numerous actors have to conceptualising and implementing future prevention
undermine democracy and social cohesion.
The present document pools the experience and co-operate and such co-operation shall be based on and de-radicalisation measures in Austria. Therefore,
handling practices of various occupational groups a macrosocial solution approach. The aim shall be to it can be assumed that anti-democratic ideologies
Therefore, when analysing and developing strategies
familiar with the topic of “prevention of violent analyse and evaluate extremist tendencies and their and attitudes will not lose their appeal in the
in the field of prevention of violent extremism
extremism and de-radicalisation” and shall make causes from different points of view and to formulate future. Progressive radicalisation tendencies and
and de-radicalisation, you cannot focus solely on
a significant contribution to handling this topic macrosocial strategies and solution approaches, an increasing number of recruiting attempts have
individual manifestations of extremism. As a matter
responsibly. which live up to the complexity of the topic. to be viewed as a realistic scenario, regardless of
of fact, extremism is based on approaches and
any specific form of extremism. Particular attention
attitudes which are mutually dependent, which show
The effectiveness of these strategies and approaches must be paid to the fact that offences cannot only
reciprocal dynamics and which even provoke each
essentially depends on how and to which extent be committed by groups but also by radicalised
// A MACROSOCIAL APPROACH AS A other. Taking into account the similarity in character,
public and civil society institutions and organisations single perpetrators, as it has increasingly been the
SOLUTION MODEL can be connected and if permanent, binding and
it is thus necessary to select a broad term for
case. Therefore, the population, the constitutional
extremism to contain radicalisation and extremism.
target-oriented co-operation alliances can be system as well as the institutions and bodies of the
The starting point of extremism, in all its In order to prevent subversive extremism, a holistic
established. The need for this endeavour exists at all democratic state and community will continue to
manifestations, lies within a radicalisation process. and macrosocial approach is ultimately required,
levels of action as well as at the local and national be confronted with scenarios in the future, calling
They make individuals susceptible to extremist integrating the inter-ministerial, institutional,
level. for active counteraction taken as early as possible.
ideologies and ultimately to violence as a legitimate administrative, non-governmental and scientific
These actions shall be taken on the premise of a
tool for achieving their goals. When analysing levels. This has to be taken into account when
macrosocial solution approach. The present strategy
these processes, it becomes evident that they are conceiving counter-measures.
shall be regarded as a foundation for these actions
very complex phenomena, which always have and shall serve as a means of orientation.
to be regarded in the context of socio-economic Moreover, hostilities and a dichotomous pattern of
and global-political factors. Security authorities, “friend-enemy” provide the ideal breeding ground for
14 \\ // 151.2. GUIDELINES FOR PREVENTION prerequisites without which a democratic society the needs of the population. Building on this, the Issues regarding identity and affiliation are
cannot work. protection and promotion of human rights and not only dealt with at a normative but also at a
OF VIOLENT EXTREMISM AND DE-
the respect for human dignity should be in the material-structural level. They are linked to social,
RADICALISATION IN AUSTRIA Extremist tendencies often originate from a small focus of prevention and de-radicalisation work. In economic, political and cultural possibilities of
minority within a society. However, under certain this way, orientation is offered for all discourses participation. A normative discussion on coexistence
In order to manage prevention of violent conditions, they can have the potential of radicalising and all macrosocial negotiation processes which of individuals must also tackle the issues of
extremism and de-radicalisation work in Austria large parts of society. If a society can firmly trust in centre around the preservation and promotion of inclusion and participation against the background
successfully, basic principles and guidelines its democratic system, this confidence can serve as democratic norms. of social inequalities, barriers and discrimination.
need to be defined, which offer orientation for all a fundamental protective shield against extremism In prevention of violent extremism and de-
players involved. In the following, it is intended in all its various manifestations. If citizens are given On the basis of human rights it is specified that group radicalisation work, topics such as sensitivity and the
to give an overview of the basic principles and the opportunity to actively participate in democratic rights must not violate the dignity and rights of the significance of gender as an interdisciplinary issue
guidelines which shall serve as a basis for the processes, extremist tendencies can be proactively individual and, thus, are subordinate to the rights of have to be considered accordingly.
present strategy and for the implementation counteracted. For this reason, the overriding the individual. Conversely, this means that collective
of concrete prevention and de-radicalisation principles of prevention and de-radicalisation work rights, which safeguard the dignity and the rights of
measures in Austria. must be to strengthen the democratic constitutional the individual and promote his or her participation in // CIVIL LIBERTIES AS A BASIS FOR
state and to safeguard the conditions under which it society, are to be welcomed and protected. COEXISTENCE WITHIN A SOCIETY
One of the biggest challenges for a democratic can work. Children’s rights2 have a particular status.
constitutional state is how to deal with anti- Promoting these central rights of children and
democratic (up to extremist) tendencies. In order to Democratic, pluralist societies are characterised
In their daily work, all players involved in prevention young individuals, developing their possibilities of
be able to counter such tendencies in our society, by a high degree of individual civil liberties which
and de-radicalisation activities have to consider the participating in and shaping social life and protecting
rules and mechanisms are required which make it form the basis of our coexistence. Civil liberties can
guidelines outlined and sustainably comply with children and young individuals are top priorities.
possible to act against anti-democratic and extremist be restricted by the state authorities, in order to
them.
tendencies, without damaging the basic principles of maintain public order and to ensure the security of
the constitutional state. the people. At the same time, the state authorities,
// IDENTITY, DIVERSITY AND AFFILIATION in compliance with the principle of proportionality,
// HUMAN RIGHTS AND HUMAN DIGNITY are obliged to guarantee that the benefit of such
The Austrian federal constitution and the
AS BASIC PRINCIPLES In a democratic society, diversity needs to measures outweighs the restrictions caused by them.
constitutional values derived from it form the
be reflected and proactively promoted in all Particularly, if the freedom of children and young
foundation for a peaceful coexistence in Austria. At
Human rights, as defined in the Universal Declaration educational, social and security-relevant service individuals is restricted by certain measures, the
the same time, basic principles like liberalism, the
of Human Rights1, and human dignity as it is laid sectors. This aim is to be pursued while bearing focus must be on the children’s well-being and the
rule of law, democracy, the republic state, federalism
down therein, form the normative basis for all in mind that societal diversity requires jointly opportunities of development for children and young
and the separation of powers, but also fundamental
societies which are based on social and liberal negotiated values and rules for coexisting, such individuals.
values such as justice, respect, tolerance, gender
principles. They guarantee that the constitutional as respect, freedom of opinion and freedom from
equality and sociopolitical participation as well
state is oriented towards the common good and violence, in order to promote a respectful, social
as ensuring social security are further central
coexistence and equal opportunities for all.
1
Universal Declaration of Human Rights (A/RES/217, UN-Doc. 217/A-(III)), 2
Convention on the Rights of the Child https://treaties.un.org/Pages/ViewDetails.
URL: http://www.un.org/depts/german/menschenrechte/aemr.pdf, 24/01/2018 aspx?src=TREATY&mtdsg_no=IV-11&chapter=4&lang=en, 24.01.2018
16 \\ // 17// DEVALUATION IDEOLOGIES AND of non-violent communication are observed in all The “United Nations Global Counter Terrorism private sector,
GROUP-FOCUSED MISANTHROPY public discourses and that the means for promoting Strategy”, which was adopted in 2015 and adapted in • further research on radicalisation tendencies
them are reinforced. In order to render prevention July 2016, constitutes an example in this context. The and evaluation of existing practices,
of violent extremism and de-radicalisation work focus of this strategy rests upon four pillars: • closer co-operation with partner countries to
Any ideology which supports violence and rejects
sustainable, the borders between verbal violence and • the identification of influencing factors prevent and combat radicalisation within and
a society which is based on human rights and
the freedom of opinion should be clearly defined, facilitating the propagation of terrorism; outside of the European Union5.
democratic values, poses a risk to social cohesion.
explained, communicated and executed. • measures to prevent and combat terrorism;
Thus, any form of extremism must receive due
• the establishment of national resources to In addition to these two official documents, the
attention. The focus of prevention of violent
To summarise, the central guideline for sustainable prevent and combat terrorism as well as European Union published a policy paper of the
extremism and de-radicalisation work is not only on
prevention and de-radicalisation work in Austria strengthening the role of the United Nations in “Radicalisation Awareness Network” (RAN) in 2016,
groups and individuals advocating violence, but also
shall be to decisively counter extremist tendencies this field; entitled “Developing a local prevention framework
on individuals who advocate and spread tendencies
while preferably including all relevant players, • respecting human rights and the rule of law4. and guiding principles”. This document specifically
which are racist, sexist or hostile to pluralism.
without undermining the basic principles of the highlights the importance of co-operating at a local
constitutional state and the fundamental values At the European level, the most relevant directive level.
Group-focused misanthropy and devaluating
derived from it. in this context is the one from the year 2014, “The
attitudes form the breeding ground for extremism.
The following points are included in the report:
They can assume disintegrating proportions, which prevention of radicalisation leading to terrorism and
might even threaten democracy. For this reason, violent extremism: reinforcement of the EU action”. • a suggestion for a common framework for
joint efforts are needed at all structural and societal 1.3. INTERNATIONAL The document indicates that the responsibilities for structuring prevention and action points to
levels, in order to find solutions which can be used RECOMMENDATIONS ON designing and implementing measures to prevent develop a local strategy or an action plan;
to effectively counter devaluation ideologies and PREVENTION OF VIOLENT and combat radicalisation lie with the member • practical advice on specific problems in the field
ideologies of inequality. In order to contain these EXTREMISM AND DE- states, but that the phenomenon of radicalisation of prevention;
is, in many ways, supranational. This directive • concrete practical experiences concerning the
problem areas, specific measures in the fields of RADICALISATION
prevention, information and research as well as focusses, among other things, on the following definition of problems and guiding principles,
in the fight against the phenomena are required, recommendations for preventing radicalisation: which, in the form of a “checklist”, will
Over the last couple of years, an increasing
among other things. subsequently support individuals doing practical
number of countries have developed national • prevention of radicalisation by consolidating
work in developing their own action plans or
strategies and action plans for the prevention expert knowledge,
Freedom of opinion is the basic condition of any strategies6.
of violent extremism and de-radicalisation. • training in the prevention of radicalisation,
freedom and it is constitutive for a functioning • development of exit strategies for violent As early as in 2014, the European Commission
Therefore, numerous international and EU
democracy. Limitations on the freedom of opinion extremism, called upon member states to develop their own
recommendations provide guidance to Austria
are to be set, when individuals or groups are being • closer co-operation with civil society and the prevention strategies7. This demand is met by the
with regard to establishing its own prevention and
discriminated and degraded on grounds of certain
de-radicalisation structures3. 4
Translated from English; see UNGCTS, July 2016 (A/RES/70/291) : https://www.un.org/counterterrorism/ctitf/en/un-global-counter-terrorism-strategy,
characteristics. It must be seen to it that the rules 25/05/2018
5
See communication of the European Commission, January 2014 http://www.europarl.europa.eu/meetdocs/2009_2014/documents/com/com_
3
See, among others, “United Nations Global Counter Terrorism Strategy“ (UNGCTS; A/70/674, dated 24/12/2015, also adapted in July com(2013)0941_/com_com(2013)0941_de.pdf, 25/05/2018
2016 (A/RES/70/291)); EU directive “The prevention of radicalisation leading to terrorism and violent extremism: reinforcement of the 6
See RAN strategy paper 2016: https://ec.europa.eu/home-affairs/sites/homeaffairs/files/what-we-do/networks/
EU action” (15/01/2014); Communication of the European Commission “The prevention of radicalisation leading to terrorism and radicalisation_awareness_network/ran-papers/docs/policy_paper_developing_local_prevent_framework_guiding_112016_de.pdf, 25/05/20187
violent extremism: reinforcement of the EU action” (15/01/2014) as well as the policy paper of the Radicalisation Awareness Network 7
See communication of the European Commission, January 2014: http://www.europarl.europa.eu/meetdocs/2009_2014/documents/com/com_
(RAN) “Developing a local prevent framework and guiding principles” (November 2016). com(2013)0941_/com_com(2013)0941_de.pdf. 28/05/2018
18 \\ // 19present document. Following international and EU religious or any other ideological world view aiming or an international organisation and is defined // SECONDARY PREVENTION
recommendations, the topic of de-radicalisation and at bringing about fundamental changes in the as a criminal act according to national law, if it is
prevention of violent extremism cannot be analysed classification system of a society. Radicalisation committed with the aim As for secondary prevention, this target group can be
seperately for each member state. On the contrary, does not inevitably result in the use of violence and defined more accurately and support for challenging
I. of seriously intimidating a population or
it appears expedient to continuously exchange violation of the law. In a democratic state based on life situations is offered. This target group generally
II. unduly compelling a government or an
views on this topic through co-operation within the rule of law, the mere conviction about a radical comprises individuals who are at risk of radicalising
international organisation to perform or abstain
the international association and to create suitable idea per se is not criminally relevant. Extremism often from performing an act or themselves and who engage with individuals
networks in this context. The focus should not only comes in when violence is used to push through an III. seriously destabilising or destroying the showing the first signs of radicalisation. This target
be on the co-operation at the “policy level” but also individual conviction. fundamental political, constitutional, group has not yet committed any acts relevant to
on the promotion of co-operation between science economic or social structures of a country or an criminal law. That is why the aim is to consider the
and civil society. These demands and experiences // EXTREMISM international organisation8. social, legal and the socio-psychological situations
form the basis and guidelines for the present of the individuals concerned and to counter any
Austrian strategy for the prevention of extremism and The term extremism derives from the Latin word violations of legal norms. On the one hand secondary
de-radicalisation. “extremus” meaning “utmost”. “Extremism”, thus, prevention addresses the individual difficulties
// PREVENTION
describes a political, religious or ideological attitude of these people, while on the other hand anti-
which has arrived at its “utmost” form. The aim is discrimination training programmes are offered to
In the context at hand, prevention refers to the
1.4. DEFINITION OF TERMS to completely change the classification system of identification and conception of strategies and the identified groups of individuals.
a society. In order to achieve this goal, the use of measures which aim at containing the risk of
In the following chapter the essential terms violence and force is a legitimate tool in extremism. radicalisation and extremism.
relevant for the present strategy are defined. The present strategy does not list individual forms // TERTIARY PREVENTION
These terms are to be regarded as working of extremism. In this way, it is made clear that it
definitions and are oriented towards European is essential not to focus on individual forms of
// PRIMARY PREVENTION Tertiary prevention is aimed at individuals having
and international documents dealing with extremism when implementing prevention and de-
committed offences punishable under criminal law.
prevention of violent extremism and de- radicalisation measures, but to always keep an eye
Primary or universal radicalisation prevention aims The intent is to prevent them from resuming their
radicalisation. on extremism in all its various manifestations.
at reaching as many social groups as possible. The extremist patterns of behaviour. This target group
objective is to build awareness of the general risks of comprises, among others, individuals stemming from
// RADICALISATION // TERRORISM pertinent extremist environments and persons who
radicalisation among the target groups addressed.
The term “terrorist act” refers to one of the For primary prevention this means strengthening want to leave this environment. Tertiary prevention
Radicalisation is the process of individual, cognitive social security, democratic culture and human rights aims at re-integrating and re-socialising individuals
intentional acts listed below, which, given their
and behaviour-based adaptation to a political, education. Primary prevention is not addressed to by offering social, legal and socio-psychological care
nature or context, may seriously damage a country
any specific target group. facilities on the one hand and ideology-critical work
and discussions on violent-extremist views of the
5
Siehe Mitteilung der EU Kommission, Jänner 2014: http://www.europarl.europa.eu/meetdocs/2009_2014/documents/com/com_com(2013)0941_/com_
com(2013)0941_de.pdf, 25.05.2018 world on the other.
6
Siehe RAN-Strategiepapier, November 2016: https://ec.europa.eu/home-affairs/sites/homeaffairs/files/what-we-do/networks/radicalisation_awareness_
network/ran-papers/docs/policy_paper_developing_local_prevent_framework_guiding_112016_de.pdf, 25.05.2018
7
Siehe Mitteilung der EU-Kommission, Jänner 2014: http://www.europarl.europa.eu/meetdocs/2009_2014/documents/com/com_com(2013)0941_/com_
com(2013)0941_de.pdf. 28. 05. 2018 8
Council Common Position of 27 December 2001 on the application of specific measures to combat terrorism, 2001/931/GASP
20 \\ // 21// DE-RADICALISATION 2. SECURITY, THE PENAL SYSTEM // THREAT ANALYSIS WITH REGARD TO
AND RESOCIALISATION RADICALISATION AND EXTREMISM
De-radicalisation comes in, if the degree of
radicalisation is very advanced and the risk arises Violent extremism in all its manifestations poses a
// THE MEANING OF SECURITY AS A
that individuals endanger themselves and/or others. considerable threat to the Austrian society. Timely
Efforts are made to initiate a dialogue with these
CENTRAL TASK OF THE STATE detection and aversion of threats, which can be
people, to motivate them to accept changes and posed by radicalised individuals or groups, are the
to trigger processes inducing them to distance Security is a fundamental human need. As it is challenges the state needs to tackle.
themselves from ideologies. the case with all basic needs, it only acquires
individual meaning, if it is non-existent or Long-term trend descriptions provided by
severely lacking. The prosperity and quality of life the Austrian security authorities dealing with
of a society considerably depend on the security
// DISENGAGEMENT security-related developments indicate a growing
prevailing in a country. Social security, social polarisation and fragmentation of our society.
justice and the protection of fundamental human These circumstances can provide the respective
Disengagement rather refers to the behavioural than
needs are prerequisites for social peace in a breeding ground for radicalising groups, which are
to the cognitive level and signifies dissociation from
society and can, therefore, be essential resilience also prepared to use violent extremist methods to
extremist or terrorist activities.
factors against radicalisation and extremism. articulate their goals. An increasing number of social
tensions, disenchantment with politics, ethnical
For this purpose, on the one hand measures to conflicts within the society, challenges posed by
// ALTERNATIVE NARRATIVES avert dangers are required. The threat analysis local separatist movements (mostly in the urban
forms the respective foundation for managing the environment9) and the acceleration of change
Alternative narratives are positive alternatives use of means and resources and for a crisis-proof processes caused by digitalisation (e.g. filter bubbles,
to extremist propaganda. They primarily aim at management structure of the state. On the other parallel societies, objective facts or pseudo-truths)
deconstructing or at de-legitimising extremist hand an increased focus should also be put on the all are manifestations of this development. On the
narratives. psychological component when conveying a sense one hand globalisation increases the importance of
of security. This component substantially influences internationality and its consequences on daily life,
the way dangerous situations are being dealt with. but on the other hand, it also leaves parts of the
In addition to this, and by providing objective society with a feeling of powerlessness and being
information, the threat analysis shall also oppose on the losing side. Another trend to be observed
false, socially effective narratives, which can lead to concerns the dwindling role of the state vis-à-vis its
an inaccurate threat assessment, followed by fighting own society. This role could partially be taken on by
the wrong causes. other actors.
9
Developing so-called “No Go Areas”, to which public organisations and security authorities do not have any access (or just restricted access).
These areas can be based on an ethnic background or a(n) (organised) criminal background. In most cases, it is a mixture of both.
22 \\ // 23The polarisation perceived in public discourse is potential. As a consequence of structures which // TAKING MACROSOCIAL ACTION AGAINST Individuals who have already attracted attention
particularly relevant in terms of security and is one are perceived as being more and more motivated RADICALISATION AND EXTREMISM due to their divergent and dangerous behaviour,
of the increasing challenges for the entire Austrian by politics and ideologies and which are formed with regard to extremism, need to be provided
society when it comes to maintaining public apart from public and democratic processes, it has with an individually tailored support service as
The sustainable achievement of goals requires a
peace, order and security. Continuous analyses become increasingly necessary to implement an early as possible. This support service shall offer
number of national measures, which are entrenched
and preventive measures adapted to the latest additional number of prevention measures to avert the possibility to work on their criminal behaviour
in different governmental and non-governmental
development tendencies are required to successfully radicalisation and recruitment processes. In recent and shall provide them with perspectives and
sectors. At the same time, target-group oriented
deal with these developments also in future. years, this approach has been progressively adopted. alternatives to their actions so that they can live their
and awareness-raising measures promoting a better
lives according to the principles of the European
understanding of violent extremism play a central
When analysing and planning measures, it is Prevention work has to be based on the approach of Convention on Human Rights.
role, but so do specific interdisciplinary, cross-
essential to comprehend the phenomenon of thinking globally and acting locally, as the borders
ideological and multiprofessional de-radicalisation
extremism at a social and individual level. The between internal and external security become Tertiary prevention can only be successful, if
measures adopted by qualified professionals.
concrete danger always emanates from individuals; increasingly blurred. Security agencies, which due essential protective factors for social rehabilitation
they either instrumentalise other people or carry out to statutory regulations are assigned the task of and/or reintegration are provided and reinforced.
The essential goal at the individual level is to detect
acts of violence themselves. safeguarding public peace, order and security,
and stop the propensity to violence. Individually
continuously monitor and analyse the security In order to reach these goals, a professional and
tailored decisions on implementing support
In the radicalisation process of an individual, situation outside of Austria and in Europe in order to interdisciplinary approach is required as well as a
measures and necessary coercive measures are
numerous aspects play an important role, which be able to offer appropriate responses to threats. qualified and interlinked staff. A continuous and
essential. When implementing individual measures,
can also be highly influenced by external actors10 transparent exchange between the professionals
it is important to evaluate the resource- and
and an individual’s social environment. Therefore, An effective threat prevention is only possible, if involved and of their observations is an essential
solution-oriented approach and to bear in mind the
a reflective discussion about the topic of security radicalisation and extremism are dealt with at a prerequisite for reducing further delinquencies.
perpetrator-victim-issue.
in Austria cannot be held without addressing the national (“Whole of Government Approach”) and/ Strengthening the resources and pinpointing risks
external influences and the social situation in Austria. or macrosocial (“Whole of Society Approach”) level. seems to be the essential task and in order to
Individuals who do not have sufficient and complete
The Austrian security authorities have considerable complete this, a deliberate use of primary, secondary
access to the economic opportunities in our society
interest in regularly exchanging views with as and tertiary prevention is required as well as a
and who do not have a determining influence
// PREVENTION AS A TOOL FOR THREAT many actors from the field of prevention of violent
on society are particularly vulnerable to being
clear understanding on the part of the institutions
MITIGATION extremism and de-radicalisation work as possible concerned and interdisciplinary thinking on the part
compromised by extremism.
in order to ensure a high degree of quality when of the stakeholders. In addition to this, working in
Alongside classic repressive measures taken by a processing this subject matter. a connected work environment and being familiar
However, education and the possibility to participate
state, which are specifically used to avert danger with the tasks, orders and objectives of the other
alone do not guarantee that individuals do not
and to minimise the damage, prevention as an institutions also is beneficial.
become radicalised. There are many current and
instrument has assumed an increasingly important historical examples proving that extremist groups are
role being an additional tool for mitigating the threat A fundamental prerequisite for a successful
also led by educational elites.
prevention of radical and extremist tendencies is
10
These external actors (states, state-like and other organisations disposing of instruments of violence and having violent potential) are to
be allocated outside of the Austrian society and they want to fight it, no matter the national territory they are currently in. Thus, every actor
taking action against the Austrian state and its society in a structural fashion is to be regarded as an external actor.
24 \\ // 25offering people perspectives, enabling them to sentenced to conditional imprisonment shows that, be taken in the preliminary stages, apart from de- further action. The determination of the necessary
participate in social standards. Social security can compared to other extremist manifestations, there radicalisation and dissociation measures, although security measures shall also be included.
only be established, if the goal of our society is have been significantly more convictions pursuant to they have comparatively little influence.
inclusion and the necessary future perspectives are the National Socialism Prohibition Act. The aim is to adopt an individualised approach
offered to arrive at this aim. At the same time, it has Even though experience has been gathered within with a differing indication, whereas the individual
to be ensured that the perspectives offered are also It is also relevant for the penal system to know the penal system over the last decades of how decisions concerning the indication always depend
accepted. the reasons for radicalisation and the formation to deal with political extremism, various forms on the estimated danger the respective detainee
of cognitive and violent extremism. Ultimately, of religious extremism sometimes still pose new poses (no binary characteristic, but a continuous,
appropriate de-radicalisation and dissociation challenges. As extremists do not form a homogenous multidimensional one). Particularly with extremist
// THE PENAL SYSTEM AND SOCIAL measures (in the sense of “disengagement”) can group in prison either, the motivation and problem detainees with very distinct risk features, being
REHABILITATION only be taken, if reliable scientific answers to these areas to be taken into account when developing expressed in different areas of life, prisons are
questions exist. Especially dissociation measures de-radicalisation and dissociation measures are required to provide interdisciplinary team work
must be of particular importance for the penal manifold. That is why the individualisation principle on the common basis of the case concept. A
Compared to the rest of Europe, the Austrian
system, as their goal is to ensure the legal conduct has to be applied in the penal system, insofar as professional co-operation between the judicial police
legal situation and jurisdiction set forth that
of the convicted offender following his or her release possible and appropriate. Since neither general and the specialist departments as well as through
individuals who are detained for having conducted
from prison. Alongside the numerous challenges crime-conducive factors can already provide the support of external experts and centres providing
(or attempted to commit) offences relating to
posed by detainees accused or already convicted for sufficient explanations for radicalisation processes follow-up support, alternatives to the extremist
extremism and terrorism are dealt with relatively
extremism motivated offences, a major problem is nor can the mere establishment of correlations explanation and indoctrination patterns have to
strictly. The number of individuals detained (in
constituted by the fact that detainees in general are between social or socio-economic prerequisites and be presented, offering an escape from fatal group
provisional detention or in prison) for the most
more responsive to extremist patterns and systems of the different manifestations of cognitive and violent dynamics.
relevant extremist offences (pursuant to § 278b to f
interpretation. extremism in its own right form a solid basis for
and 282a of the Austrian Penal Code) has constantly
differentiated and specific counter-measures. However, it always has to be considered that alleged
been increasing and poses new challenges for the
Prisons are always institutions in which risk factors or real injustices and experiences of helplessness or
Austrian law enforcement authorities. Nevertheless,
tend to culminate. At these institutions, troublesome Especially in prison environments, the vast majority humiliation can easily be seen as a confirmation of a
the members of this group amount to less than one
individuals are detained under difficult conditions, of individuals show a certain type of characteristics personal and/or structural disadvantage experienced
percent of all prison inmates (as of July 2018), which
which are often also partially caused by the large or a combination of characteristics, which is why due to an ideology, giving rise to an acceleration of
is a manageable number.
share of foreign detainees (over 50 % in 2018). concepts following the disintegration theory concepts of the enemy on the part of the detainee.
For this reason, prisons always have to be seen as (marginalisation, alienation, discrimination, etc.) Such a momentum can effect and impede the efforts
Also, the reports and convictions for National
critical locations with regard to radicalisation and only have a subordinate explanatory value. With made for social rehabilitation even until after an
Socialist reactivation pursuant to the National
the formation of cognitive or violent extremism particular regard to the role of the political and/ individual’s release from prison or custody.
Socialism Prohibition Act have increased over the
and they are significant areas of recruitment. Even or religious ideology and the significance of group
last couple of years and hate and slander have not
though it cannot be assumed at the moment that dynamic processes, an ideographic theory, a pattern However, it is in any case essential to acknowledge
only become a pressing problem on the Internet. The
radicalisation in prisons is numerically relevant, of the conditions and/or a case concept have to be that acquiring a full understanding of de-
amount of support services provided for individuals
appropriate secondary measures always have to developed for every single detainee as a basis for any radicalisation and taking into account all forms of
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