20 years of the UN’s counter-terrorism fight: international cooperation remains vital

Terrorism is no abstract concept for Belgium. 22 March 2016 remains deeply etched in the collective memory. On that date, five foreign fighters returning from the conflict in Syria perpetrated atrocious attacks in Brussels. Casualties: 35 dead and 340 injured.

Yet we are by no means alone in this. In certain regions, terrorists act much more brazenly. Consider the Sahel region, where jihadist groups are causing widespread societal disruption.
 

11 September 2001

But what exactly does terrorism entail? International organisations and national legislation may hold slightly differing interpretations. The Belgian Criminal Code defines terrorism as "a set of offences committed with the aim of (1) seriously intimidating a population, (2) unduly compelling public authorities or an international organisation to perform or refrain from performing an act, or (3) seriously destabilising or destroying the fundamental political, economic, or social structures of a country or an international organisation".

The ultimate wake-up call regarding the threatening impact of terrorism was undoubtedly the appalling attacks of 11 September 2001 in the US. That sent such a shockwave through the world that many countries – including Belgium – realised that a resolute approach to this baffling phenomenon was essential.
 

Transnational

At the United Nations (UN) level, it was also recognised that there was a need for a sound strategy to curb terrorism. Because, much like climate change and organised crime, terrorism is pre-eminently a cross-border phenomenon.

Indeed, numerous terrorist organisations possess transnational branches, with their ideology being disseminated predominantly through the internet. Even lone actors or micro-groups are invariably subject to foreign influence. Consequently, no single country or even a bloc of countries like the EU can combat terrorism on its own.

As a consequence, the UN General Assembly unanimously approved the United Nations Global Counter-Terrorism Strategy in 2006 – a global UN framework to combat terrorism. This carried the explicit message that terrorism, in all its forms and manifestations, is completely unacceptable.

Prior to 2023, this strategy was subject to review every two years. During the 8th review session, Member States agreed to conduct this process on a triennial basis in future. By doing so, Member States intend to allow sufficient time to implement the agreed amendments and recommendations. At the same time, it allows for a more thorough evaluation of the progress made prior to each new review. The 9th review took place in New York on 1 and 2 July 2026.

Youth radicalisation

What changed over those 20 years? First of all, we understand the phenomenon much better. Thus, we recognise that the radicalisation of young people – as young as 14–15 years old – through the adoption of radical terrorist ideologies, is a key factor.

Furthermore, we observed that radicalisation is occurring increasingly fast. While the process of radicalisation could initially take up to 10 years, today it can happen in just a few months or weeks. While social media contributes to this phenomenon, artificial intelligence is also a factor.

All these factors obliged UN Member States to revise the strategy, for instance with a heightened focus on prevention.
 

Four pillars

The EU strongly advocated respect for human rights, including gender aspects. Indeed, if in our counter-terrorism efforts we ourselves resort to heavy-handed measures – such as torture or unfair trials – we merely feed the grievances on which terrorist groups flourish.

In summary, the current UN counter-terrorism strategy comprises four main pillars:

• Measures to address the conditions conducive to the spread of terrorism;
• Measures to prevent and combat terrorism;
• Measures to build states' capacity to prevent and combat terrorism, and to strengthen the role of the UN system in this regard;
• Measures to ensure respect for human rights and the rule of law as the fundamental basis for the fight against terrorism.
   

Counter-narrative

What can we all do to combat terrorism? First of all, we can take purely security-focused measures. For example, we can place suspicious groups and individuals on a sanctions list and monitor them closely, as the UN, the EU, and our country do. We can freeze their assets, stop issuing visas, and try to cut off their funding.

While effective, these measures alone remain insufficient. Precisely because young people are such a crucial target group, they deserve greater attention. 14- to 15-year-olds are inherently searching for identity and do not always find their way in an increasingly complex world. Furthermore, through the internet and social media platforms, they readily gain access to diverse ideologies that dangle false prospects before them. Seeking identity, community, respect, structure, or financial stability, they may easily fall prey to exploitation.

So it all comes down to preventing that radicalisation. This can be achieved, for instance, by staying alert to indicators so as to detect any signs of radicalisation at an early stage. Deploying a counter-narrative is also effective, providing robust argumentation that refutes disinformation.

Victims – whether they have survived an attack themselves or lost a loved one – can likewise play an essential role in prevention, particularly with regard to young people. Their testimonies – which often carry a powerful emotional impact – constitute a potent means of raising awareness.

From this standpoint, V-Europe – a Belgian organisation established in the aftermath of the 2016 Brussels attacks – is dedicated to amplifying the voices of victims of terrorism. Furthermore, the organisation contributes to enhancing the assistance and support available to victims of today and tomorrow (see box).
 

Future prospects

Within the Sahel region, socio-economic factors play a primary role. A significant proportion of youth in the region face poverty and lack employment prospects. Under such circumstances, the promises made by jihadist groups – which offer income, status, and recognition – can seem exceptionally appealing.

This dynamic impacts more than just the young people concerned. Mothers, seeking a better future for their offspring, can likewise prove vulnerable to such appeals. Therefore, by bolstering women's resilience and autonomy while providing young people with tangible future prospects, we concurrently undermine terrorist organisations, which exploit despair and a lack of opportunities.
 

Lack of consensus

All these insights – enshrined within the UN Global Counter-Terrorism Strategy – have, over the past two decades, assisted in mitigating terrorist threats. At present, however, multilateralism – the commitment to international cooperation – faces growing strain.

On 1 July 2026, the UN General Assembly adopted the 9th^th review of the strategy. However, for the first time in 20 years, this was achieved not by consensus but through a vote: 141 countries voted in favour, while the US, Israel, and Argentina voted against.

While the absence of consensus is regrettable, the text remained substantially unchanged from the 2023 version. It is notable that 141 delegations – including countries such as Iran – also endorsed existing achievements in the areas of human rights, gender equality, prevention, and the role of civil society. That these principles were maintained – despite attempts to weaken them – is a significant outcome in the current geopolitical context.
 

CUTA

Furthermore, the meeting proved highly valuable, not least because jointly reviewing the issue with numerous states and sharing best practices is consistently informative. In addition, the review conference was preceded by the 4th Counter-Terrorism Week, serving as a venue that convened upwards of 1,100 attendees representing 126 Member States, 31 regional and international organisations, 17 UN entities, and 91 academic, civil society, and private sector institutions.

Belgium maintained a highly active presence, notable among which was a side event involving CUTA – the Belgian centre of knowledge and expertise tasked with overseeing the national terrorist threat (see box). Indeed, since 2016, Belgium has maintained a highly progressive framework capable of inspiring other states. As a result, our approach is tailored to individual needs, taking full account of young people's psychological and social well-being alongside their living circumstances.
 

Pivotal junction

Our FPS – including both the Central Administration and the Permanent Representation to the UN in New York – served as a highly effective 'pivotal junction' throughout. Particularly by leveraging its extensive network and its knowledge of global trends (see box).

Although the 9th review of the UN Counter-Terrorism Strategy may not have represented an unreserved success, the international community nonetheless assembled to exchange best practices and collectively eradicate this scourge root and branch. And this remains genuinely vital in a world evolving at such speed.