Terrorism and Aid: Preventing Supply and Countering Demand
Post 9/11, and, more particularly for Australia, the Bali bombings, terrorism has been a major concern for world governments.
This concern has led to an increased effort to counter this threat. Development and foreign aid - referred hereafter as aid - are among a number of options considered by governments. In Australia, a range of programs are being implemented, from increased funding for the education sector in Indonesia, to bolstering maritime and aviation security throughout South-east Asia. Given this focus, as evidenced by the pre-eminence of security in the White Paper on Australian Aid , it is timely to address the issues surrounding the role that aid plays in a wider regional stability and counter-terrorism context.
Before addressing the counter-terrorism aspects of aid, it is important to understand the two facets of terrorism- the supply side and the demand side. In terms of the supply side, certain groups who use terrorist tactics can be considered suppliers of terrorism. Countering the supply side involves using intelligence, law enforcement, financial controls and, in some cases, military force to stop these groups from using terrorist tactics, therefore limiting their scope to supply terrorism.
Terrorism also consists of a demand side. Terrorist groups, regardless of their objectives, need to recruit members, raise funds, and appeal to public dissatisfaction in pursuit of their political goals. As such, a counter-terrorism policy must also address the grievances that lead individuals to turn to terrorism. Thus, for a counter-terrorism policy to contain terrorism most effectively, it must focus on both the supply and the demand sides. In this, aid plays an important role in countering both aspects of the problem. It is also important to note that terrorism cannot be “defeated- only reduced, attenuated, and to some degree controlled”. Therefore aid, or for that matter any counter terrorism instrument, either individually or as a whole, can not completely stop acts of terrorism. Rather, counter terrorism instruments provide a means to limit the scope and ability of terrorist groups to operate.
Aid can be used to address supply side issues. The current Counter-Terrorism Initiative undertaken by AusAID in Indonesia uses aid to address supply side issues. Under this initiative, programs are focused on police capacity building, anti-money laundering and travel security with the aim to restrict the operational ability of terrorist groups in the country. A further example is the Australian Government’s support for the Jakarta Centre for Law Enforcement Cooperation (JCLEC). The JCLEC is a resource and training center for the South-east Asian Region to provide support for combating transnational crime, especially terrorism. These programs highlight the important role aid plays in addressing supply side issues.
Aid can also be applied to address demand side issues. For example; aid can be used in the establishment of good governance systems, increasing transparency in political institutions, increasing food and housing security and fostering community building initiatives. These measures go some way to reducing feelings of oppression or hopelessness, making groups or individuals less likely to turn to extreme means to address their grievances, or to be exploited by others. Addressing demand side issues can be achieved through the projects run by development agencies and donors. As such, counter-terrorism benefits are an important bi-product.
However, there are also a number of issues to be mindful of when addressing terrorism through an aid lens:
- The foremost issue is whose security is priority? The client or the donor? It is important not to lose the perspective that the goal of development, according to the Australian government, is to “reduce poverty and to achieve sustainable development, in line with Australia’s national interest”. If aid is used foremost for short-term donor security, long-term development goals may be neglected or compromised. This may result in greater instability in the future, which is adverse to Australia’s national interest. Aid goals are beneficial to a wider counter-terrorism policy in their own right and as such should not be sacrificed.
- Issues may also arise from how client countries respond to being perceived by donors as a terrorist threat. This perception may lead to a breakdown in the relationship between donor and client in which those in most need are left wanting. Development does not have to be explicitly labeled as counter-terrorist to achieve counter-terrorism outcomes. Achieving development goals creates an environment that promotes open and transparent political institutions, and delivers basic human rights which inhibit the demand side factors that lead to terrorism.
The recent White Paper on Australian aid stated the program is “an integral and important part of Australia’s broader foreign policy and security agenda,” suggesting that aid has an important role to play in achieving counter-terrorism objectives. The aid sector is uniquely positioned, delivering projects that address both the supply and demand aspects of terrorism. In order to harness these benefits, it is important to be mindful of the goal of development, and not to compromise long-term development goals for short-term counter-terrorism benefits. As with any one aspect of a counter-terrorism policy, aid on its own cannot address the issue solely but does play a unique and important role in occasioning the threat.
Patrick Orchard
porchard@hassall.com.au
AusAID, “Australian Aid: Promoting Growth and Stability,”(Canberra: Australian Government, 2006), 6
Shibley Telhami, The Stakes: America in the Middle East the Consequences of Power and the Choice for Peace (Colorado: Westview Press, 2004), pp 13-14.
Paul R Pillar, Terrorism and U.S. Foreign Policy (Washington: The Brookings Institute, 2001), p 218.
See: http://www.ausaid.gov.au/country/cbrief.cfm?DCon=3010_2150_4972_2067_3443&CountryId=30
See: http://www.jclec.com/index.php?option=com_content&task=view&id=14&Itemid=28
AusAID, “Australian Aid: Promoting Growth and Stability,”(Canberra: Australian Government, 2006), xvi
