Noting Growth of Da’esh Affiliates in Africa, Speakers Tell Security Council Tackling Terrorism Requires Prevention, Accountability, as Force Alone is Not Solution
Tackling the threat of terrorism through comprehensive approaches remains a priority, the Security Council heard today from senior counter-terrorism experts, with many speakers emphasizing that force alone is not the solution.
Ethnic and regional disputes are conflating with the agenda of terrorist groups, Vladimir Voronkov, Under-Secretary-General, United Nations Office of Counter-Terrorism, said as he presented the eighteenth report of the Secretary-General on the threat posed by Islamic State in Iraq and the Levant (ISIL), also known as Da’esh, to international peace and security and the range of United Nations efforts in support of Member States in countering the threat (document S/2024/117).
Despite a sizeable reduction in Daesh’s operational capacity in some regions, the considerable depletion of its financial reserves, and internal challenges due to the prolonged delay in announcing a new leader after the killing of his predecessor earlier in 2023, the risk of the group’s resurgence remains high, he said. Da’esh affiliates in West Africa and the Sahel are on the rise and continue to operate with increasingly more autonomy. Should this trend persist, it is possible that a vast area of instability may emerge from Mali to the borders of Nigeria, he cautioned. Preventing terrorism from materializing is not only more effective; it is also more cost-efficient, he said, adding that “addressing conflict itself remains our best hope to mitigate the threat posed by Da’esh and other terrorist groups.”
The Council also heard from Natalia Gherman, Executive Director of the Counter-Terrorism Committee Executive Directorate (CTED), who stressed the importance of ensuring accountability and justice for terrorism-related crimes. Member States must apply the relevant legal frameworks and prosecute all acts of violence committed by terrorists. She pointed out that the prosecution rate for sexual and gender-based violence crimes remains low, despite these crimes being a recurring tactic.
She also highlighted the misuse of new and emerging technologies, such as unmanned aircraft systems, by terrorist groups. The Abu Dhabi Guiding Principles, adopted in December, aim to counter this by guiding Member States’ responses to this and provide a framework for UN entities to design appropriate capacity-building initiatives, she added.
Jürgen Stock, Secretary General of the International Criminal Police Organization (INTERPOL), said that Africa and Central Asia are high-priority theatres for the resurgence of Da’esh. Highlighting the three axes of INTERPOL’s counter-terrorism work, he spoke of biometrics, border security and battlefield information. For instance, the biometrics mission in Somalia captured data on nearly 300 terrorist suspects via mobile devices. “It is in the darkness that Da’esh is most dangerous,” he stressed, cautioning against any false sense of security about the group’s waning.
In the ensuing debate, Council members stressed the importance of whole-of-society approaches in combating terrorism. “Terrorism thrives in areas of political instability, underdevelopment and injustice,” Algeria’s delegate said, as he pointed to the growth of Da’esh affiliates in Africa. Calling on the international community to prioritize peacebuilding, diplomacy and development efforts, he said these are essential to resolve the conflicts that give terrorist groups their footholds. He also emphasized the need for transparency and engagement in listing processes and expressed alarm about the use of emerging technologies by terrorists.
Da’esh remains a formidable adversary, Mozambique’s delegate acknowledged, noting that despite its setbacks in Iraq and Syria, it may seize on opportunities to metastasize by taking advantage of the volatility and conflict in the Middle East, in West Africa and the Sahel. “Africa has proven time and again to be capable of doing its part,” he said, noting his own Government’s domestic counter-terrorism efforts to combat terrorist financing.
Also expressing concern about the growth of terrorism in Africa, the representative of the United States said an international coalition is working with local partners to address threats in Syria and Iraq. He condemned attacks on the coalition and encouraged Member States to play an active role in implementing sanctions against terrorist groups. He also stressed the importance of repatriating detained third-country national fighters and displaced persons as well as addressing conflict-related sexual violence.
When listening to the “all-too familiar statements by Western countries regarding the importance of protecting human rights”, the Russian Federation’s delegate said, it is important to remember the grave violations committed under the pretext of counter-terrorism in Afghanistan, Libya, Iraq and Syria as well as during the many years of the French military presence in the Sahel. It will not be possible to eradicate terrorism as long as terrorists and extremists are used by a number of Western States to overthrow regimes that have fallen out of favor, he said.
Briefings
VLADIMIR VORONKOV, Under-Secretary-General, United Nations Office of Counter-Terrorism, presented the eighteenth report of the Secretary-General on the threat posed by ISIL (Da’esh) to international peace and security and the range of United Nations efforts in support of Member States in countering the threat (document S/2024/117). His Office is committed to supporting survivor-centered gender-sensitive and human-rights-compliant approaches to countering terrorism and preventing violent extremism, he said. Outlining progress achieved in fighting Da’esh, he noted a sizable reduction in the group's operational capacities in some regions. The prolonged delay in announcing a new leader after the killing of his predecessor earlier in 2023 reflects internal challenges. Further, Member States’ efforts to counter the financing of terrorism continue to yield results, he said, noting that Da’esh’s financial reserves are considerably depleted. In countries such as Indonesia and Malaysia as well as Egypt and Mozambique, terrorist activity by Da’esh affiliates has been reduced, while in Afghanistan, efforts by the de facto authorities have reportedly impacted the ability of the Da’esh affiliate to conduct attacks inside the country. However, he cautioned, the risk of resurgence by Da’esh remains.
Since November, the Da’esh core has increased its attacks in Iraq and Syria, he said, also noting increased threat levels in several European States and terrorist attacks in the Philippines. However, parts of Africa, notably West Africa and the Sahel, remain the most affected by the activity of Da’esh and its affiliates. Highlighting ethnic and regional disputes conflating with the agenda of these groups, he said affiliates continue to operate with increasingly more autonomy. Should this trend of greater autonomy persist, it is possible that a vast area of instability may emerge from Mali to the borders of Nigeria, he said, adding that countering the threat of terrorism in Africa remains a priority for his Office. It is vital to ensure that counter-terrorism measures are grounded in international human rights and humanitarian laws, he said.
Pointing to the dire situation of individuals stranded in camps and other facilities in the north-east of Syria, he called on Member States with nationals in such facilities to facilitate safe, voluntary and dignified repatriation. Also stressing the need for more multidimensional approaches, he added: “force alone is not the answer.” Calling for comprehensive responses, firmly grounded in political strategies and based on all-of-society approaches, he highlighted the Global Counterterrorism Coordination Compact, which ensures coherence among its 46 entities. Also highlighting the need for prevention, he said that preventing terrorism from materializing is always more effective than remedying its impact; it is also more cost-efficient. In contexts where terrorist groups exploit conflict dynamics, he said, “addressing conflict itself remains our best hope to mitigate the threat posed by Da’esh and other terrorist groups.” Calling on States to consider the Secretary-General’s proposal to develop and adequately invest in national and regional prevention strategies, he said they must find common ground, reduce friction and commit to multilateral solutions.
NATALIA GHERMAN, Executive Director of the Counter-Terrorism Committee Executive Directorate (CTED), said that on behalf of the Counter-Terrorism Committee, her office assesses and facilitates technical assistance delivery for the implementation of relevant Council resolutions on counter-terrorism. CTED recommendations have led to several initiatives implemented by UN Global Counter-Terrorism Coordination Compact entities to address the threat posed by Da’esh and its affiliates, including supporting the prosecution, rehabilitation, and reintegration of individuals in a human-rights compliant, gender-responsive and age-appropriate manner. Highlighting two important work areas for her office, she said that addressing the use of new and emerging technologies for terrorist purposes is a priority. Incidents around the world demonstrate that terrorists, including Da’esh, increasingly use unmanned aircraft systems for intelligence gathering and attacks. These groups’ sophistication in producing these small and inexpensive devices is increasing.
To address this growing concern, the Counter-Terrorism Committee adopted the Abu Dhabi Guiding Principles in December, she reported. These non-binding principles are intended to guide Member States in their responses to the threats posed by the use of unmanned aircraft systems for terrorist purposes, including against critical infrastructure and soft targets, and provide a framework for UN entities to design appropriate capacity-building initiatives. In 2024, the Counter-Terrorism Committee expects to adopt non-binding guiding principles on preventing, detecting and disrupting the use for terrorist purposes of new and emerging financial technologies, as well as information and communications technology (ICT). In light of the rapid technological advances in these fields, public-private partnerships are essential to counter the use of technologies for terrorist purposes.
The second priority is to ensure accountability and justice, she said, noting that 2024 marks 10 years since the adoption of resolution 2178 (2014) on the prosecution, reintegration and rehabilitation of foreign terrorist fighters. Bringing terrorists to justice is an important commitment of all UN partners who have continued supporting accountability efforts for the crimes committed by Da’esh in Iraq and Syria, as well as in the Sahel, Maghreb and Europe. The recommendations and analysis that CTED provides to Member States have also increasingly focused on ensuring accountability and justice for terrorist-related crimes, by applying the relevant legal frameworks, and to prosecute all acts of violence committed by terrorists. The prosecution rate for sexual and gender-based violent crimes remains low, despite these types of crimes being a recurring tactic of terrorist groups, including Da’esh and its affiliates, as seen in Iraq, Syria and Nigeria. CTED will continue to cooperate closely with Member States, United Nations entities, international, regional and subregional organizations, civil society, and the private sector.
JÜRGEN STOCK, Secretary General of the International Criminal Police Organization (INTERPOL), noted that the developments and trends related to ISIL (Da’esh) highlighted in the UN Secretary-Generals’ report align with INTERPOL’s assessments. Pointing out the “opportunistic exploitation of any weakness or gaps in the security landscape” by ISIL (Da’esh) to expand its presence and control, he underscored that young people are particularly vulnerable to recruitment and women and girls are subject to sexual and gender-based violence. For that reason, INTERPOL is committed to bringing a gender perspective to global policing. Expressing concern about the exploitation of new technologies by the group, he emphasized collaboration between INTERPOL and the UN Office of Counter-Terrorism under the CT-TECH project to prevent terrorist use of tools like encryption services, video distribution services and propaganda platforms. To address another threat posed by ISIL (Da’esh) — alignment with transnational organized crime — INTERPOL builds analytical units in its member countries to collect data on interactions between terrorist groups and criminal organisations.
Commending the international community’s “truly monumental efforts in countering the phenomenon”, he warned that ISIL (Da’esh) has been “greatly diminished, but not eradicated”. “It is in the darkness that Da’esh is most dangerous,” he stressed, urging the international community to “not turn our backs and be lulled into a false sense of security”. To avoid the risk of resurgence, INTERPOL focuses on detecting, tracking, and stopping those who fill the ranks of ISIL (Da’esh) through three axes: biometrics; border security; and battlefield information. Spotlighting successful operations, such as a biometrics mission in Somalia capturing data on nearly 300 terrorist suspects via mobile devices, he called on the international community to share information through INTERPOL to build an accurate cross-regional threat picture.
Moreover, the member States should run systematic screening checks against INTERPOL databases at their borders to ensure ISIL (Da’esh) members are tracked and caught, he stressed. Further, the international community should ensure the sustainability of INTERPOL counter-terrorism operations and capacity-building initiatives, particularly in Africa and Central Asia — high priority theatres targeted by ISIL (Da’esh)resurgence. In a world filled with crises, we often prioritize the most urgent conflicts, he said, urging the international community to “not let Da’esh go unchecked as they continue to cause harm among the most vulnerable”.
Statements
The representative of the United States, expressing concern about the increasing terrorism threat in West Africa and the Sahel, welcomed the work of the Integrated Border Stability Mechanism, which aims to assist Governments in the region strengthen border governance and security cooperation. Encouraging Member States to play an active role in implementing sanctions to counter Da’esh and Al-Qaida, he said an international coalition is working with local partners to address threats in Syria and Iraq. Attacks on Coalition forces, including those on his country’s forces by Iran-aligned militia groups, directly undermine the international community’s ability to prevent Da’esh from reconstituting, he said. Repatriation of detained third-country fighters and displaced persons in north-east Syria continues to be a priority for his country, he said, as is addressing conflict-related sexual violence. Highlighting the Organization’s work in supporting survivor-centered investigations, he welcomed its efforts to incorporate context-specific gender perspectives into strategies to prevent violent extremism. In Afghanistan, the Taliban must adhere to their counter-terrorism commitments, he said.
The representative of China said that terrorism remains a dire threat to the world. The recent terror attacks in Pakistan are a stark reminder of this. The international community has no choice but to show greater solidarity, intensify cooperation and combat terrorism, with no effort spared. “There are no good or bad terrorists,” he said, rejecting double standards, “selective counter-terrorism” and the politicization and instrumentalization of the counter-terrorism agenda. Citing a lack of capacity in Africa’s counter-terrorism efforts, he urged the UN and the international community to prioritize resource support in strengthening the continent’s anti-terrorism capacities at the legislative, judicial and law enforcement levels. Terrorism cannot be eradicated by security means alone, he asserted, adding that counter-terrorism efforts must be seen as a multi-pronged package of political, economic, judicial, social and other means. China has helped developing countries, particularly African States, to strengthen their counter-terrorism capacities, he said.
The representative of the Republic of Korea voiced alarm about the export of terrorism, as seen in recent attacks in Iran and Pakistan claimed by ISIL/Da’esh, adding that Africa, particularly West Africa and the Sahel, has become a “a terror epicentre”. Pointing to the use by terrorists of emerging technologies, he underscored the need for “a proactive approach that is more relevant and up-to-date”. Da’esh and its affiliates exploit conflicts and political chaos, using sexual and gender-based violence as tactics. Military actions alone cannot solve these deep-seated problems. Comprehensive approaches should be prioritized with investments in development, security capacities, rule of law and human rights as well as integrate gender perspectives, he stressed, highlighting his country’s $20 million development and peacebuilding project in Africa for 2022-2026. He further warned that global instability fuelled by conflicts in Ukraine, Gaza, and the Sahel is expanding breeding grounds for terrorists, emphasizing that “no one is immune from terrorism” and calling for global collaboration in addressing terrorism.
The representative of Japan expressed alarm over the deteriorating and complex situations in conflict zones, including but not limited to the situation in West Africa and the Sahel. A security-centred approach alone is insufficient to counter the threat, she stated, emphasizing the importance of a holistic approach through the lens of the human security, by promoting the humanitarian-development-peace nexus. She encouraged Member States to incorporate the analysis and recommendations of Counter-Terrorism Committee Executive Directorate assessments in their prevention strategies. Voicing concern that women and girls are affected by sexual and gender-based violence committed by Da’esh, she called for integrating a gender perspective — as neglecting those considerations both undermines the effectiveness of counter-terrorism measures and risks worsening conditions that may foster terrorism and violent extremism. She further voiced support for the sanctions regime, as it is imperative to cut off the means of financing of terrorism.
The representative of Mozambique noted that, despite significant setbacks, Da’esh remains a formidable adversary. That entity’s degraded military capabilities in Iraq and Syria have not eliminated the risk of its resurgence, with the volatility and conflict in the Middle East, in West Africa and the Sahel “presenting opportunities for it to metastasize further”, he stressed. Stressing the continuous need to adapt to changing tactics and asymmetric threats, he called on the international community to constantly stay ahead and attuned to the transformed landscape of counter-terrorism.
“One size fits all responses have proven to be counterproductive,” he stressed. Noting that “Africa has proven time and again to be capable of doing its part,” he recalled that in August 2023, the Government of Mozambique ratified Law No. 14/2023 to prevent and combat money laundering and terrorist financing, and has undertaken a series of security, legal, judicial, and administrative actions. Mozambican Defence Forces, in partnership with the Southern African Development Community Mission in Mozambique and the Rwandan Defence Forces, continue the relentless fight, culminating most recently in the elimination of the operational leader in August 2023.
The representative of the Russian Federation said the Secretary-General’s report could benefit from reflecting on the need to address the root causes of terrorism. It will not be possible to eradicate that phenomenon as long as terrorists are used by Western States to overthrow regimes that have fallen out of favor, he said. The current map of the terrorist threat is a map of regions that have experienced foreign interference. Also drawing attention to the huge quantity of weapons abandoned by the United States and North Atlantic Treaty Organization (NATO) when fleeing Afghanistan, which ended up in the hands of terrorists, he said: “No one was ever held accountable for this.” When listening to the “all-too familiar statements by Western countries regarding the importance of protecting human rights,” it is important to remember the grave violations committed under the pretext of counter-terrorism in Afghanistan, Libya, Iraq and Syria as well as during the many years of the French military presence in the Sahel, he said. He also pointed to the delays in the implementation of the Investigative Team to Promote Accountability for Crimes Committed by Da'esh/ISIL (UNITAD)’s core mandate and stressed that the Mission must hand over its evidence to Iraq, as mandated by the Council.
The representative of Algeria warned of the risk of ISIL (Da’esh) resurgence in Iraq and Syria if the efforts to counter them are reduced, pointing to the group’s affiliates growing in Africa. “Terrorism thrives in areas of political instability, underdevelopment and injustice,” he said, urging to prioritize peacebuilding, diplomacy and development efforts to resolve the conflicts that give these groups a foothold. Moreover, global cooperation is crucial for defeating ISIL (Da’esh). For this reason, he called for greater synergy in counter-terrorism efforts under the UN’s coordinating role, emphasizing the need for transparency and engagement in listing processes to ensure fair consideration of evidence provided by Member States. Addressing underlying root causes such as poverty and unresolved regional conflicts is crucial, he said, pointing to the alarming use of emerging technologies by terrorists. In this regard, Algeria, as the current Chair of the Counter-Terrorism Committee, supports development of guiding principles on information technology and digital payments.
The representative of Switzerland, voicing concern about the evolution of threat posed by ISIL (Da’esh) in conflict zones, particularly in Africa, warned that the convergence of armed conflicts and terrorism challenges development of appropriate and sustainable responses. “Purely security-based approaches have often proved ineffective,” she stressed, underscoring the importance of adopting holistic and inclusive strategies to tackle the underlying factors of terrorism and violent extremism. Noting that preventing and combating terrorism is the responsibility of States, which includes upholding international law, she urged to ensure accountability for crimes, which in turn prevents new grievances that terrorists could exploit. “It is crucial that we break this vicious circle,” she added. To combat terrorism, States must build trust between security actors and the public, closing a gap often exploited by terrorist groups, she emphasized. This requires an inclusive, gender-sensitive approach, and a strong partnership with civil society. “Let us make prevention a political priority,” he concluded.
The representative of Slovenia said that, despite its reduced leadership and financial resources, Da’esh’s activities in West Africa, the Sahel and Afghanistan are gravely concerning. “The Islamic State in the Middle East showed how easily Da’esh expanded by filling the void left in the absence of state governance,” she cautioned. At the same time, she observed how Da’esh is exploiting the situation in Gaza with public communications aimed at exacerbating religious intolerance and mobilizing lone actors to commit attacks globally. She further voiced concern over the possibility of terrorist groups obtaining modern weapons — such as armed unmanned aerial vehicles — noting that the nexus between terrorism and organized crime requires continued international cooperation. Condemning the widespread use of sexual and gender-based violence as a strategy and tactic in terrorist contexts, she called for accountability, as well as support for survivors in their recovery and reintegration. On counter-terrorism, she underscored that conditions conducive to the spread of terrorism and drivers of radicalization must be addressed.
The representative of Sierra Leone expressed concern over the evolution of the ISIL (Da’esh) threat in conflict zones in Africa despite UN-coordinated efforts in fighting terrorism. The unconstitutional changes of government and the breakdown in engagement between the Economic Community of West African States (ECOWAS) and Burkina Faso, Mali, and Niger will complicate the fight against terrorism in the Sahel, creating a significant deficit in counter-terrorism capabilities, he cautioned. Turning to the situation in Afghanistan, he called on the Counter-terrorism Committee and CTED to assist Kabul in employing “a whole-of-society approach to counter-terrorism” in compliance with international law. On Syria, he voiced alarm over the slow pace of repatriation efforts from camps in the north-eastern part of the country, emphasizing that serious humanitarian conditions in the detention centres are conducive for recruitment. “The underlying root causes of conflict fuel terrorist recruitment,” he said, calling on member States to promote education, engage in deradicalization programmes, and foster religious tolerance and social inclusion.
The representative of Malta said that, while Da’esh was effectively suppressed in Iraq and Syria, its asymmetric attacks have increased since November 2023. Expressing alarm over Da’esh’s efforts to exploit differences involving local populations, she said that its public communications in response to the events in Israel and Gaza since 7 October were aimed to exacerbate religious intolerance. She further spotlighted increasing terrorist activities in the Sahel, Lake Chad and the Horn of Africa, risks to radicalization by Al-Shabaab in Somalia, and the spread of terrorism from the Central Sahel to coastal States in the Gulf of Guinea, which is increasing the risks of maritime insecurity. A high concentration of terrorist groups in Afghanistan and the proliferation of weapons in circulation from stockpiles left in that country after the Taliban takeover is equally concerning. Noting that access to weapons and financing will continue to sustain terrorist acts, she stressed the need to interrupt the vital sources of existence for Da’esh, including through enhanced law enforcement cooperation in the financial crime and cybersecurity domains.
The representative of France said that Da’esh, Al-Qaida and their affiliates are showing resilience in the Levant, Africa, Afghanistan and Central Asia, also posing a growing threat in the Sahel and around the Gulf of Guinea. Because terrorist groups thrive on a multitude of factors, including human rights violations, exclusion of women, economic fragilities and the climate crisis, “our response must be multipronged”, she asserted. It must be a security and military response but it must also address humanitarian, political and economic causes and respect the rule of law, human rights and fundamental freedoms. The actions of the Wagner Group and its offshoots are the exact opposite. France remains engaged in both the military and civilian fields in the coalition against Da’esh with its partners. It is imperative to fully use international tools, starting with the Council’s sanctions. Her country has not forgotten Yazidi women who, for 20 years, have suffered the barbarity of Da’esh. It has created a specialized jurisdiction — the national counter-terrorism prosecutor’s office.
The representative of Ecuador said that despite reductions in operational capacity and leadership losses, Da’esh and its affiliates remain a threat to international peace. That is evident in deadly attacks in West Africa, the Sahel and the Middle East. Weak institutions and the absence of rule of law in conflict areas give Da’esh greater operative, financial and logistical autonomy, he observed, warning of a risk of greater instability extending from Mali to Nigeria. To counteract Da’esh the international community needs to pool efforts and to strengthen counter-terrorism cooperation. Likewise, the use of sexual violence as a terror tactic must be condemned, and combating terrorism funding is crucial. “The persistence of the threats posed by Da’esh shows the limits of a security focused approach,” he stressed, calling for the establishment of “more just and equal societies, which provide basic quality services to their population as well as opportunities for their young people.”
The representative of the United Kingdom said that, though the threat in Iraq and Syria has been effectively suppressed, the prospect of Da’esh resurgence in the Middle East remains concerning. Iranian-aligned militias continue to attack Coalition forces that are directly working to remove Da’esh’s malignant influence in the region, in partnership with Iraq’s Government, he observed, calling on Tehran to use influence to stop these attacks and de-escalate regional tensions. “It is in all our interests to prevent Da’esh from projecting its poisonous ideology and inflicting death and destruction across the region,” he asserted. Voicing deep concern over Da’esh’s growing presence across Africa, he welcomed UN entities’ cooperation with the African Union to build up capacity and squeeze out the spaces for violent extremist networks to grow. He encouraged cooperation between UN Global Counter Terrorism Coordination Compact members and welcomed INTERPOL’s role in this. As well, he commended UNITAD’s investigations — with the support of the Iraqi authorities — into sexual crimes by terrorists against women and girls.
The representative of Guyana, Council President for February, spoke in her national capacity, noting the worrying trends concerning the activities of ISIL/Da’esh, including the development of unmanned aerial systems technology and their weaponization as well as the increased use of cryptocurrencies to finance terrorist activities. Terrorists also engage in sexual and gender-based violence, including rape, torture and sexual slavery. There is a need to increase the representation of women in decision-making processes for anti-terrorism laws and policies and to have specialized units within security forces and the justice system that can provide training to investigate sexual violence. In addressing this scourge, it is also necessary to adopt preventive measures that address the root causes, including poverty, marginalization and lack of access to education and economic opportunities. Guyana supports all initiatives aimed at bolstering the capacity of Member States to combat terrorism, fostering dialogue and cooperation, and championing strategic partnerships to comprehensively counter this threat, she said.