Authors: Anne Speckhard and Molly Ellenberg
Debates across the world are raging, discussing the issues pertaining to the repatriation of foreign terrorist fighters [FTFs] who left their home countries to fight with the Islamic State of Iraq and Syria [ISIS] or live under their so-called Caliphate. Some died in Syria and some have made their way back home, but nearly 10,000 male FTFs, approximately 2,000 of them from Europe, are currently being held by the Syrian Democratic Forces [SDF] in prisons and camps in Northeast Syria. Likewise, thousands of women who brought or bore children into ISIS are now locked with their children in detention camps as well. It is unlikely that the SDF will be able to hold the FTFs forever, especially with frequent attacks by Turkey that pull guards away from their posts to assist in the fighting or with bombs that even hit the prisons and camps themselves, allowing the detainees to escape. Likewise given international challenges to holding trials in SDF territory these prisoners currently are being held without charges, except for those who were charged or tried in absentia at home. Ergo, it is crucial to determine if the FTFs will make it home, whether by entering stealthily, being extradited after crossing the border into Turkey, or being properly repatriated by their home countries, and then to decide what will happen with them. If they are successfully prosecuted – which is a challenge given that evidence from the battlefields so far away is hard to procure, as are legally acceptable statements from witnesses – they will likely be imprisoned and may take part in some sort of treatment program, begging the question: Can an ISIS terrorist be rehabilitated and reintegrated into society?
After a well-attended ICSVE Zoom panel featuring journalist Anthony Loyd and lawyer Tasnime Akunjee discussing the thorny issues concerning rights concerning citizenship and repatriation, particularly that of British-born Shamima Begum, the International Center for the Study of Violent Extremism [ICSVE] hosted another panel moderated by director Dr. Anne Speckhard to discuss and debate the merits of terrorist rehabilitation and reintegration, specifically in Europe. Throughout the discussion, two schools of thought emerged, each linked to the concept of disengagement versus deradicalization, which arose numerous times throughout the comments posted by audience members as well as issues of treatment and evaluation. This paper is an attempt to capture the main points of the discussion hosted by ICSVE of four experts, all of which have been intimately involved with terrorist rehabilitation programs in the UK, Belgium, Austria and Iraq.
In regard to the theme of disengagement versus deradicalization as an end goal of a rehabilitation program it’s important to define the concepts. Terrorist disengagement refers to simply changing one’s behavior, refraining from violence, and removing the terrorist from the community or social network in which they were radicalized, while deradicalization refers to a change in attitude and ideology and a disavowal of one’s previously held beliefs endorsing violent extremism and terrorism and rejecting democratic societal values. All of the panelists held that listening to their clients and taking a holistic approach to treatment is necessary and that disengagement can happen far more quickly than deradicalization, and generally does, simply by virtue of being imprisoned. Some of the panelists argued that successful rehabilitation programs require a theological repudiation of ISIS’s ideology to ensure the individual does not return to terrorist actions upon release, and that deradicalization should be evaluated based on the person’s beliefs about militant jihad and Islamism in general, regardless of whether that person is still willing to act violently based on those beliefs. While they caution that holding extremist beliefs is not a crime in and of itself, those who have disengaged but not been deradicalized are more likely to return to violence given that their extremist beliefs support such behavior. Thus, the panelists aim for their clients to change their extremist beliefs and express acceptance and appreciation of democratic values and tolerance of other religions and behaviors decried as heretical by extremist groups.
Others see ideology as a secondary aspect of radicalization, with many terrorists not having been attracted into the group by its ideology nor being particularly ideologically committed at the point of imprisonment. These panelists therefore viewed addressing ideology as a secondary aspect of rehabilitation. Those in this camp see addressing grievances related to identity, belonging, and significance as paramount and place emphasis on a systems approach which treats the individual, but also takes into account the need to address the individual’s response to a rejecting society. Likewise, this systems approach also locates the problem both within the individual and society and thus calls for broader societal change to also occur to address the racism and discrimination that made these individuals feel marginalized and alienated and thus more vulnerable to radicalization and terrorist recruitment in the first place.
While criminologists like Andrew Silke have argued that ideological deradicalization is not a necessary component of rehabilitation and that many terrorists have been released and successfully reintegrated into society, his research refers to terrorist groups that are not following a militant jihadist ideology. Likewise, those experts that argue that ideology is not the driving force for joining a terrorist group and that view significance, purpose, belonging, friendship, and material rewards as the far more important reasons for joining also do not place significant value on addressing ideology in rehabilitation. While these are important points, it behooves one to consider how ISIS themselves viewed ideological indoctrination. After declaring their Caliphate, ISIS required every new male member to attend a two-week shariah training program in which the underpinnings of the ISIS ideology were taught, with no dissent allowed. ISIS men were then expected to teach their wives and children these lessons at home. All ISIS men were taught that only ISIS were the true believers, that even other Muslims could be takfired – that is, condemned to death for failing to pledge their allegiance to ISIS; that jihad is a mandatory obligation of all Muslims; that suicide terrorism is a honorable type of Islamic martyrdom with rewards for the “martyr” including instant access to Paradise; that punishments of beheading and other brutally gruesome practices carried out by ISIS are legitimate; and that all Muslims are obligated to move to and serve the Caliphate. They were taught that absolute obedience is necessary, and failure to follow ISIS rules would end in worldly punishments in addition to damnation to eternal hellfire. ISIS cadres that have been interviewed by ICSVE often describe the ISIS shariah trainers as extremely charismatic and that the indoctrination was strong and, in many cases long-lasting, taking over a year to shake after an ISIS member defected or left the group. Given this intense and effective indoctrination process, it is likely that ideological evaluation and treatment should at least be considered in the case of ISIS members who lived in Syria and Iraq.
Redouan Safdi, an imam who works in the main terrorism prison in Belgium with Belgians convicted of terrorism offenses, including FTFs who have traveled to Somalia, Libya, and Syria and have chosen to return to Belgium states that when he is designing an individualized rehabilitation program for an individual terrorist returnee, “The first question I always asked was, ‘Why did this person go?’” In this first statement at the outset of his presentation, Safdi invokes an important aspect of working with people who have been radicalized: Recognizing the push and pull factors, wherein the latter refers to the benefits, material, spiritual, psychosocial, or otherwise, that person was promised by the terrorist group while he or she was being recruited, and the former refers to the aspects of the person’s home society, in this case Belgium, that were painful or unacceptable to that person and contributed to his decision to leave. When Safdi asks the people with whom he works why they would leave the safety and security of Belgium to go to a country marked by chaos and death, he says they usually begin by talking about their love for Islam. But when the conversations become deeper and more meaningful, he explains, “I would hardly hear them talk about an Islamic State or the implementation of shariah. All I would hear is the injustices they have experienced in the past: Racism, discrimination, poverty, lack of opportunity.” Many of the people in the prison who left from Belgium to Syria, he says, are very young people who felt “frustrated and alienated by society […] and were searching for an identity […] young people who did not feel at home in the countries where they were born.” ISIS, reflects Safdi, was able to almost perfectly respond to these grievances through their propaganda, especially on social media, and cater to the needs of these “lonely, alienated, frustrated young people.” Spiritually, politically, and socially, ISIS gave them “hope, a new identity […] a sense of belonging. They showed them appreciation.”
Indeed, in an ICSVE study of 220 ISIS recruits in-depth interviewed in prison or after having defected or returned home, we found that nearly a third of the interviewees from Europe were convinced to travel to ISIS by Internet-based propaganda and recruitment alone, without any face-to-face interactions. ISIS’s online recruitment and propaganda alone gave them a sense of purpose, meaning, significance, dignity, identity and hope for their future in Syria. The other two-thirds of the sample were recruited by family members, friends and actual face-to-face recruiters, all promising a better and more Islamic future in Syria. By beginning with these issues, Safdi gets to the heart of the matter, that no one joins a terrorist group except that the group purports to meet some of their needs, materially, spiritually or psychosocially, and that when leaving the terrorist group these needs don’t simply evaporate. They likely still exist, and may be exacerbated upon return, and need to be addressed by redirecting the individual to healthier and more prosocial answers than joining or staying attached to a terrorist group and its virulent ideology. Other researchers have agreed that because many people join terrorist groups in an effort to find an identity, disengagement may cause one to feel a profound loss of identity, meaning, and purpose, all of which were previously provided by and centered around the terrorist group. Thus, replacing the social support once given by the terrorist group is a critical aspect of both deradicalization and disengagement.
Despite the strong draw of groups like ISIS, however, Safdi nevertheless believes rehabilitation and reintegration is possible for most people, under one condition: “We have to be able and we have to be ready to listen to these people.” This is not an easy task, as listening to their grievances requires addressing racism and discrimination that contributed to them feeling alienated enough from Belgian society to go join ISIS in Syria, and which are issues that are ongoing today, despite a great deal of mainstream societal denial. All of the social alienation these convicted terrorists felt before joining ISIS is likely to exist once again when they are released. Issues of racism and discrimination are not easily addressed social problems, so Safdi states that it is important to work with the individual to find ways to live within society while giving them a “feeling that they are wanted […] that they are needed. We have to make sure that these people feel at home.” Unfortunately, Safdi admits that strong societal issues in regard to rejecting many Muslim minorities and converts as well as widespread denial about the reality of this issue still exists in Belgium, stating, “This is the one thing that no one is ready to do: To listen and deal with the needs of their own citizens.” This aspect of Safdi’s assessment is a clear rebuke of those who claim that violent behavior, extremist or otherwise, is a simple choice made by people who are claimed to be not held accountable for their actions. The truth is that the choice to join a terrorist group and believe in an Islamic utopia in Syria came about while living inside a social system that was actively rejecting the individual so the choice occurs within a societal context which also bears some responsibility. As one audience member comments, “Choice also needs to be contextualized. Choices aren’t always clear and opportunities to make choices aren’t always equal across the board.” Indeed, this is why we argue that one cannot see radicalization as a problem solely residing within an individual. It also involves systemic racism, discrimination, marginalization which are frustrating to the individual and which create many cognitive openings to respond to the claims of groups like ISIS.
Beyond listening to grievances, Safdi explains that Belgium’s approach to rehabilitation is holistic, covering not only the ideological symptoms of the person’s radicalization, but the multiple reasons behind radicalization. Indeed, radicalization into terrorism is never univariate. The first author, after studying hundreds of terrorists over many years, identified at least 50 motivations and vulnerabilities operating on the level of the individual that resonate to the terrorist group, its ideology and the level of social support present in society for joining the group. There are always multiple reasons why an individual joins a terrorist group, requiring a holistic approach and often using multiple professionals, most often psychologists as well as religious scholars.
Safdi participates in a program that involves both imams and psychologists and notes that most Belgian FTFs are not knowledgeable enough about Islam to need only a purely theological deradicalization program. That said, even with those who lack strong ideological indoctrination and the ability to defend that indoctrination, he does offer Islamic guidance to address the poorly supported hadiths and cherry-picked Quranic verses that terrorists use to justify and promote terroristic violence. The holistic approach works, Safdi says, because everyone on the team “is there to help. They are not there to judge or punish him.” As for evaluating the success of the deradicalization program, Safdi does not use concrete evaluation tools, but continually watches to see if and how the individual undergoes a process of changing his core identity from rejecting Belgian society and endorsing terrorism to becoming one who embraces living in Belgian society. Safdi looks for how the prisoner slowly begins to disavow his former harsh, judgmental and violence-endorsing self and no longer “wants to be associated with the person he was in the past.” Also, Safdi looks for behaviors demonstrating an openness to new ideas, such as enrolling in courses at a university, which are also good indicators of a change in attitude and embracing finding his place in Belgian society according to Safdi. Moreover, he says, when his clients are released from prison, they are kept under surveillance. Only one person with whom he has worked has recidivated.
Moussa Al-Hassan Diaw, who runs DERAD, a prison deradicalization organization in Austria, also spoke in the panel about rehabilitating and reintegrating militant jihadist terrorists who have been convicted on terrorism charges. His organization also works with far-right and far-left terrorists. Diaw’s program, like Safdi’s, is holistic, focusing on “culture, religion, democracy, pluralism, civic education, and history.” His stated goal, however, is for the person being treated to come to an “acceptance of a pluralistic, democratic society and to avoid polarization.” In contrast with Safdi’s methods of addressing the reasons behind one’s radicalization and helping in the formation of a new identity, Diaw addresses the ideological beliefs that support endorsing violence and as a religious scholar he is well equipped to guide a person out of the ISIS ideology. In keeping with this goal, while Safdi measures success through behavioral change demonstrating a newfound positive identity, Diaw requires a rejection of the extremist ideology and acceptance of democratic values as evidence of deradicalization. Diaw points out that much of his work takes place outside of the prison system. As such he is free to address radicalized belief systems, which are legal to hold as long as the individual does not engage in criminal behavior. He believes that those underlying beliefs that support violent behaviors need to be addressed in order to have confidence that the individual will not return to violence. Of course, the determination of at what point one can be considered “moderate” as opposed to “extreme,” is subject to debate. For example, Moskalenko and McCauley (2009) hold that non-violent, legal political activism should not be a target of deradicalization, even if one’s beliefs are extreme or fundamentalist. Diaw obviously disagrees when it comes to ISIS and we would also point to ICSVE reports on cases of ISIS defectors returning to a commitment to the group when there has been no treatment and also the ideology has not been successfully addressed. Therefore it appears that this is a thorny judgment issue but that addressing ideology within a holistic approach likely makes recidivism less likely.
At the outset of his program, Diaw aims to establish himself to his clients in a positive way and to prove that rather than being “part of a power structure,” he is a sympathetic, understanding community member. After addressing the aspects of rehabilitation, many of which are similar to those discussed by Safdi, though he emphasizes a heavier focus on disputing the ideology of ISIS and other similar groups, Diaw moves on to the challenges of reintegration. First, he says, the people need to find a job, but their reputations are often beyond repair, so they have to change their names or somehow overcome the social barriers to finding employment. It should be noted that in Europe it is normal for employers to require potential hires to show a police certificate demonstrating that one has not been in trouble with the law, an impossibility for former terrorist convicts. Others worry they will not be accepted back into their communities from which they left or that they will not be able to rebuild relationships with their families and regain custody of children who may have been put into the welfare system. Some audience members commented that mainstream Muslim communities may be wary to welcome these people back for fear of being surveilled themselves once the former terrorist lives among them, or even be harassed by law enforcement due to their association with someone convicted on terrorism charges. All of these roadblocks to reintegration can drive the person back to their old radical community, even if they no longer hold radical beliefs, and once finding comfort and belonging with their former community they are at risk for re-radicalizing. Relocation may address many of these concerns in removing the stigma people may feel in the job market after release from prison and also physically distancing them from their old negative influences. However, having to show a clean police record is a significant barrier for many to gain employment. An example of failed reintegration is seen in the case of Younes Delefortrie, an ISIS returnee in Belgium. Younes returned to Antwerp after being convicted on terrorism charges but freed on a stay of sentence to open a bakery and try to reinvent himself. Far-right politician Geert Wilders publicly denounced him, telling the public that his baked goods had blood on them due to his terrorist past. The bakery failed as a result and Younes, who did not receive good treatment and support, never found his way and was later returned to prison.
Omar Shariff, a therapist and former extremist now working in the United Kingdom comments on how powerful ISIS’s brand is; that its marketing strategy seduced so many young people all over the world. For this reason, Shariff states that he regularly uses videos produced through ICSVE’s Breaking the ISIS Brand Counter Narrative Project in his work, using insiders from ISIS to denounce the group on video with those with whom he is working. In his view, people countering ISIS are fighting “a giant,” and therefore young people need far more than just “youth work.” He echoes the previous two speakers in emphasizing a holistic approach that addresses all aspects of radicalization, including but not limited to the theological aspects. For Shariff, evaluation of a deradicalization process should be individualistic and tailor-made and should focus on the individual’s acceptance of Islam as a religion that values life above all else, as well as moderation, as evidenced in the Islamic concept of “the balanced nation.” He actively confronts those who do not hold such views from a scholarly Islamic perspective and also examines the person’s mental health.
All of the speakers emphasized the voluntary aspects of prison-based terrorist rehabilitation and reintegration treatment programs, stating that no one is forced to take part. Each one noted that active listening, visiting, repeatedly inviting and caring for those who refuse to take part often wins them over. In describing his evaluation process, Omar Shariff emphasizes evaluating his own efficacy to create a strong enough rapport with the client to succeed in beginning and continuing to move them along a deradicalization process. Safdi concurs, explaining that people in Belgium convicted on terrorism charges are not required to undergo treatment, but he nevertheless continues to visit them in prison, allowing them time to think and decide on their own to talk with him. We would also note that prison is a very lonely and can be a harsh place where kindnesses can go a long way in reaching a person who might otherwise be unreachable and that by extending simple acts of care, a prisoner may make a change of heart. The first author recalls a high-value terrorist ideologue in Camp Cropper in Iraq who he refused to confess or talk with any prison interrogator, always pointing out that he had been injured during his capture and needed a doctor. The first series of interrogators ignored his request for a doctor, but a particularly caring one dropped his demands for answers and took the prisoner for medical treatment, an act which completely turned the prisoner to not only cooperating with his interrogator but ultimately becoming an ideologue fighting militant jihadi terrorism in the prisons in Iraq.
While the time to go deep into how treatment of prisoners convicted on terrorism charges actually takes place was limited and not all audience questions could be fielded, the written comments from audience members, many of whom are also experienced in this type of work, made throughout the event were numerous and insightful, many related to the different paths toward rehabilitation and reintegration, focusing on either psychosocial problems or on religious arguments. Many asked for common Islamic arguments against ISIS’s ideology and were pointed to the Quilliam guide entitled, “Tackling Terror: A Response to Takfiri Terrorist Theology.” Others asked whether there were empirically based assessments for deradicalization. Many programs utilize the Violent Extremist Risk Assessment [VERA], which is informed by the operator, although there are many other assessment and evaluation checklists other than the VERA and some prison programs make their own. No matter what assessment measures are used, it is important to assess repeatedly throughout a rehabilitation program, observing both positive changes and falling back into old behaviors and ideological points of view. Likewise, it is important to have a global assessment, from both psychological and religious points of view, and when possible to have feedback from other prisoners and guards as well. All of the panelists stressed the importance of tailoring their assessments to the individual, based on his or her specific risk factors and reasons for having joined a terrorist group initially. They also emphasized the difficulty in ensuring that individuals have truly deradicalized, not simply learned how to say the right things in order to be released.
The diversity of viewpoints among the panelists as well as the comments demonstrate the beginning of an answer to whether an ISIS terrorist can be rehabilitated and reintegrated into society. Yes, rehabilitation is possible, the panelists agree, but programs must be holistic, individually tailored, culturally sensitive, trauma informed and continuously evaluated for positive growth as well as setbacks over time. The consensus appears to be that reintegration is as difficult as rehabilitation with its own challenges and that the difficulties of remaining deradicalized and disengaged after release from prison are many. Reintegration is likely supported by the individual’s acceptance of the benefits of a democratic and pluralistic society in which he or she lives and determination to live as a productive, law-abiding citizen within that society and a reciprocal expectation of societal acceptance of the individual once he or she has served their time. Acceptance of societal benefits is difficult to achieve if the person did not formerly and does not expect to experience these benefits upon release. Thus, broader societal reform surrounding racism and discrimination is also critical in order to work toward truly ensuring that militant jihadi prisoners released after serving under terrorism charges do not revert to their old ways upon finding that the same grievances that drove them to violent extremism initially are still present, alongside the terrorist groups that promised them an alternative form of governance, albeit one that is achieved via terrorist actions.
 The ICSVE Zoom Panels are sponsored by grants from the Embassy of Qatar in Washington, D.C., and from the European Commission’s Civil Society Empowerment Programme.
 Silke, A. (2011). Disengagement or deradicalization: A look at prison programs for jailed terrorists. CTC Sentinel, 4(1), 18-21.
 Speckhard, A., & Ellenberg, M. D. (2020). ISIS in Their Own Words: Recruitment History, Motivations for Joining, Travel, Experiences in ISIS, and Disillusionment over Time–Analysis of 220 In-depth Interviews of ISIS Returnees, Defectors and Prisoners. Journal of Strategic Security, 13(1), 5.
 Speckhard, A., & Ellenberg, M. (April 15, 2020). Is Internet Recruitment Enough to Seduce a Vulnerable Individual Into Terrorism?. Homeland Security Today.
 Feddes, A. R. (2015). Socio-psychological factors involved in measures of disengagement and deradicalization and evaluation challenges in Western Europe. Электронный ресурс]. Режим доступа: URL: http://www. mei. edu/content/article/understanding-deradicalization-pathways-enhance-transatlantic-common-perceptions-and-practices (дата обращения: 05.09. 2018).
 Speckhard, A. (2016). The lethal cocktail of terrorism: the four necessary ingredients that go into making a terrorist & fifty individual vulnerabilities/motivations that may also play a role. International Center for the Study of Violent Extremism: Brief Report.
 Moskalenko, S., & McCauley, C. (2009). Measuring political mobilization: The distinction between activism and radicalism. Terrorism and political violence, 21(2), 239-260.
 Speckhard, A., & Yayla, A. S. (2016). ISIS defectors: Inside stories of the terrorist caliphate. Advances Press, LLC.
 Speckhard, A., & Paz, R. (2012). Talking to Terrorists: Understanding the Psycho-social Motivations of Militant Jihadi Terrorists, Mass Hostage Takers, Suicide Bombers &” martyrs”. McLean, VA: Advances Press.
Author’s note: first published in Homeland Security Today
Every Pakistani is a soldier of Operation Radd-ul-Fasaad
Citizens have the right to participate in politics and to be aware of the political situation. However, in our country, it is becoming common to make unwarranted comments and speculations on non-political, national issues. All institutions in the country have their own mechanisms and among them, the Pakistan Army is the most committed to its rules and regulations. However, the attitude adopted by some people towards the security agencies of the country and the nation in the recent past does not fall under the category of patriotism in any way. This is the same institution whose soldiers and officers have not only extinguished the flames of the beloved homeland with their blood but also restored peace by eradicating terrorism from the country. DG ISPR Major General Babar Iftikhar briefing on the completion of four years of Operation Radd-ul-Fasaad said that the forces with the help of the people have defeated terrorism and eliminated major terrorist networks. Operation Radd-ul-Fasaad covers the entire country and every Pakistani is a soldier of this operation.
There is no denying the fact that Pakistan has suffered the consequences of being a frontline ally in the US war, launched in Afghanistan in the name of eradicating terrorism, in the form of the worst terrorism on its soil. The Pakistan Army launched Operation Rah-e-Rastin 2008 to eradicate the scourge of terrorism, which entered the phase of Operation Rah-e-Nijat. These operations took place mostly in North, South Waziristan and Northern areas, followed by Operation Zarb-e-Azb and Operation Radd-ul-Fasaad were launched, the domain of which was extended to the whole country and combing operation and Operation Khyber-4 were also launched under it. Our security forces made great sacrifices in these operations for the protection of civilians and a peaceful Pakistan and remained committed to continuing the operation till the last terrorist is killed. It is the result of the unparalleled sacrifices and determination of the security forces that the terrorists have been completely wiped out from the land of Pakistan. Although some miscreants fled across the border during the counter-terrorism operation which is a constant threat to Pakistan butto secure the borders, Pakistan is erecting fences not only on the border of Afghanistan but also on the border of Iran so that the movement of terrorists can be stopped.
After four years of Operation Radd-ul-Fasaad, the country is peaceful, playgrounds are inhabited, foreign teams are coming to the country for sports, Pakistan’s war on terror is being praised around the world, world leaders and Institutions are also acknowledging the peace efforts of our security forces. According to UN Secretary-General Antonio Guterres, Pakistan’s journey towards peace is excellent while British General Sir Nicholas Carter is calling the clearing of South Waziristan from terrorists a great achievement of the Pakistan Army. Pakistan army has not only accepted the challenge of terrorists and their sponsors and facilitators but has also left no stone unturned in measuring their necks. DG ISPR has rightly termed it as a journey from terrorism to tourism. However, all this has been made possible by the sacrifices made in Radd-ul-Fasaad.
There is no doubt that the Pakistan Army has not only successfully met every trial yetis working day and night to protect the country’s internal and external borders but the question is, are we doing our job? Even now, some political and non-political people are hurling insults against the institutions in public meetings and also on social media; those who slander the country’s sensitive institutions should be ashamed. It is the duty of every patriotic Pakistani along with the spokesperson of the institution to respond to them with arguments and facts and also to take a hard line to discourage them. The rioters who speak out against these institutions and sitting on social media are even more dangerous than ISIS. If every Pakistani is a soldier of the Radd-ul-Fasaad operation then we all have to work for our country. The anti-national agenda must be thwarted together but we must not forget the heroes who made Operation Radd-ul-Fasaad a success by shedding their blood and the people are beginning to breathe a sigh of relief in an atmosphere of peace.
FATF and Pakistan: The Impact of Being in the ‘Grey’
The recently concluded Financial Action Task Force (FATF) meeting in Paris has come out with an expected outcome. It has continued to put Pakistan on the Grey List, demanding compliance again on at least three of the remaining 27-point action plan that was given to the country in June 2018 when it was placed on the list for the second time.
The country’s ‘selected’ Prime Minister Imran Khan, along with a host of intellectuals and media professionals, alleged Indian role behind the decision. Imran Khan went on to suggest that the FATF is acting on political cues and purpose and that will not be helpful for developing countries.
The 39-member FATF is an influential inter-governmental body that formulates and monitors the role of financial mechanisms in the growth and promotion of money-laundering and terror-financing activities worldwide. It has the Black List that leads to direct economic sanctions and creates severe economic difficulties for the nation. Currently only two countries, Iran and North Korea are on the list and that has resulted in a massive financial stress for both of them.
Since Pakistan has been globally acknowledged as a hub of terrorism and a good number of terror activities across the world, have had their genesis or linked someway to it, one cannot forget the Osama Bin Laden’s link and his subsequent elimination there, it has the dubious distinction of being on the Grey List, thrice. It was on this list for three-years 2012-2015 and again has been there since June, 2018.
Now the very basic objective behind grey listing by the FATF is to change the behaviour of some of the nations, involved in using terrorism as a means of promoting foreign policy goals. It aims to strengthen money-laundering and financing mechanisms so as to alleviate sources of financing to the terrorists, operating in any part of the world. Based on Pakistan’s activities for a long period of time, it has been put on the list twice.
When it was put on the list for second time in 2018, the country negotiated a 26-point plan with the FATF to work on and show meaningful improvement at the earliest. One interesting point is that since Imran Khan has become the PM, the country has remained on the list. In spite of tremendous financial complications, Pakistan has been ‘deliberately’ slow to work on these measures.
While there have been talks of Pakistani economy and diplomacy being hugely affected on account of being in the list for such a long time, the previous experience in 2012 however, had not been that difficult. It was able to secure loans from the IMF and other multilateral financial institutions. It was also able to bank upon its Arabian allies, Saudi Arabia and the UAE and secured their financial backing on a bilateral basis. Hence, it did not face much problems during that period.
However, situation has changed now. Its political relations with both major Arabian powerhouses is abysmal and that has reasons for its increasing bonhomie with the Turkish Erdogan. While Erdogan is pursuing his personal agenda and using Pakistan as a tool in his scheme of things, Imran Khan has suddenly created a catch-22 situation for his country. By getting too close to Erdogan, he has virtually alienated the Arabs and consequently, his financial support base has eroded.
It has been evident in the two countries, stopping their line of credit to Pakistan and asking for return of loans, before the schedule. Turkey is no financial powerhouse and its President Erdogan has his own personal and diplomatic agendas, very little of them are in common with Pakistan’s geo-political interests. China, the only other country it can bank upon, is more interested in promoting its own brand of debt-diplomacy for which Pakistan, currently is a prime candidate.
An Islamabad-based think-tank has recently come up with a research paper that suggested the country has lost about US$ 38 Billion on account of its listing thrice in the FATF Grey List since 2008-2021 period. Tabadlab, the think-tank worked out the losses on the basis of a decrease in the national domestic consumption, foreign direct investment (FDI) and exports. A large part of the losses has been attributed to a significant reduction in household and government consumption and expenditure.
While an accurate economic analysis on this basis will be difficult and might well be hypothetical. Politically and diplomatically, Pakistan has had to endure a big loss. A continued listing in the FATF, discourages better diplomatic relations with most countries. Also, potential investors and financial institutions will find it uncomfortable to do business with such a country. Further, when the country has acquired a notorious reputation of being home to terrorists from Al Qaeda, ISIS, Lasker-eTaiba, Jaish-e-Mohammed and their leaders, banks and financial institutions will not find the place attractive enough to do business.
To make the situation worse, Pakistan is in a very delicate financial state. Inflation is very high, unemployment is rampant, GDP figures are down while forex reserves are at a very low of US$ 12Billion. The Gross Public Debt has risen from 72% of GDP at US$95 Billion (2018) to 87% at US$112.8 Billion currently. Pakistan’s Debt to GDP ratio currently stands at an abysmal 107% of GDP. Total external debts and liabilities have risen from 33% of GDP (2018) to 45% of GDP (2020). And the political instability is worrisome while the role of Army in making of economic and foreign policy remains, as it had been for decades.
Though PM Imran Khan continues to accuse the FATF of playing politics, it cannot shy away from the fact that globally-acknowledged terrorists, continue to have a free run in the country. To create troubles for neighbouring India, its army and the ISI provide sanctuary, arms and financial support to terror kingpins like Salahuddin, Masood Azhar, Hafiz Saeed and Zaki-ur-Rehamn and many others.
The politically-motivated widespread support to anti-France protests (probably to please Erdogan), the dilly-dallying of the judicial process for Daniel Pearl killers and a continued brinkmanship against the Indian government, have made situation further difficult for Pakistan. While most of the Pakistani analysts are expecting the country’s likely exit from the list in June this year and are putting their hopes on a phone call by Biden to Imran Khan that could change the fate of Pakistan, it is clear that Pakistan really needs to change its attitude, behaviour and actions to use terrorism as a tool of foreign policy.
Despite acknowledging strict measures, Pakistan has to stay on the grey-list in FATF
President of The Financial Action Task Force (FATF), Dr. Marcus Pleyer, announced in a press conference held on 25 February 2021 after the four-day virtual plenary meeting in Paris, France, that “Pakistan remains under increased monitoring,” adding that while Islamabad had made “significant progress,” there remained some “deficiencies” in mechanisms to plug terrorism financing.
The Financial Action Task Force (FATF) is an inter-governmental formal decision-making body. It was founded in 1989 during the G7 Summit in Paris to develop policies against money laundering. It is a “policy-making body “that generates the political will to bring about national legislative and regulatory reforms in money laundering. It has also started dealing with virtual currencies. The FATF Secretariat is located in Paris. It sets standards and promotes effective implementation of:-
a. Legal, regulatory, and operational measures for combating money laundering.
b. The FATF works to identify national-level vulnerabilities to protect the international financial system from misuse.
Pakistan has been on the FATF grey list since June 2018 and has been asked to implement the FATF Action Plan fully by September 2019. Pakistan has implemented almost 90% of the recommendations; only three out of 27 points are not fully implemented.
Pakistan has suffered heavy economic losses due to being put on the grey-list; according to some estimates, Pakistan has suffered US Dollars 38 billion.
The FATF president noted that Pakistan was working towards its commitment made at a high level to implement the illicit financing watchdog’s recommendations, saying “that is not the time to put a country on the blacklist.”He added that as soon as Pakistan completed the action, the watchdog “will verify the reforms’ sustainability and discuss in next plenary in June.”
However, there are no chances that Pakistan could be put on the blacklist because it has at least three members of the FATF — China, Turkey, and Malaysia — that can sustain all pressures against any downgrade.
The government of Pakistan is committed to fully implementing the action plan, and to date, the progress achieved is admired by other FATF members.
However, FATF is also being used as a political tool against other nations. By reviewing the countries on the blacklist, the new additions are North Korea and Iran- the West’s adverse enemies. Also,the addition of Morocco, Burkina Faso, Senegal, and the Cayman Islands, are political decisions. As a matter of fact, the Western world is using international organizations, including FATF, to coerce their political opponents. Pakistan was a close ally with the West during the cold war era, and the front line state on Afghan war and non-NATO ally in the war on terror, yet faced worst sanctions like Pressler Amendments, Kerry Loggar Bill, etc.
Pakistani journalist Adeela Khan stepped up and raised a question asking FATF president Marcus Pleyer why India is not on the grey or blacklist of FATF even after financing proxies in Afghanistan, using Afghan soil to end terrorism in Pakistan, and violating human rights in India Occupied Kashmir. There more than forty banks in India involved in money laundering. The Incident of terrorism in Sri Lanka can be traced back to India. Yet India is not on the grey list or blacklist. India has been playing an ugly role in keeping Pakistan on the grey list. Although the EU Disinfo lab has revealed that Indian state-sponsored media think tanks and professionals play a dirty role in spreading fake news and disinformation against China and Pakistan yet, the world has not realized India’s evil intentions.
A bais and discriminatory attitude may harm the FATF’s reputation ultimately.
Many neutral people ask similar questions and demand justice and a fair playground for all nations, above the political motives and discrimination. The international community may maintain the reputation of International organizations and integrity – merit-based decisions.
On the one hand, Pakistan is trying its best to implement the FATF plan fully, and on the other hand, it is demanded that a fair playground be provided to judge the case for Pakistan. It is expected that in the next plenary session to be held in June 2021, Pakistan will come out of the grey list.
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