NATO’s Policy Guidelines on Counter-Terrorism

I. Introduction

1. Terrorism, in all its forms and manifestations, is the most direct asymmetric threat to the security of our citizens and to international peace and prosperity.¹ Terrorists continue to demonstrate their ability to cross international borders, expand their networks, enhance their capabilities and invest in new technologies to increase their reach and lethality. They are increasingly adapting commercial-based and traditional military technologies to inspire, plan, prepare, and execute deadly attacks on Allies’ forces, populations and territory and for financing, training, and recruitment purposes. Modern technology, including emerging and disruptive technologies, increases the potential impact of terrorist attacks employing conventional and unconventional means, while also providing new means to counter terrorism. Terrorists also continue to seek to use cyber tools. Terrorists and terrorist groups² continue to commit or inspire horrendous attacks, and undermine security in Allies’ own territory as well as in the immediate neighbourhood of the Alliance, including NATO partners’ (hereafter referred to as partners) security. Non-state armed groups, including transnational terrorist networks and state supported actors, also continue to exploit conflict and weak governance to recruit, mobilise and expand their foothold. Pervasive instability or conflict can create an environment conducive to the spread of terrorism, including by fostering violent extremist ideologies, intolerance and fundamentalism.
2. Countering terrorism, in all its forms and manifestations, is essential to our collective defence, as demonstrated by NATO’s response to the terrorist attacks of 11 September 2001. NATO’s role in the fight against terrorism contributes to all three core tasks of the Alliance – deterrence and defence, crisis prevention and management and cooperative security - and is integral to the Alliance’s 360-degree approach to deterrence and defence. NATO will continue to counter, deter, defend and respond to threats and challenges posed by terrorists and terrorist organisations based on a combination of prevention, protection and denial measures. NATO is fully committed to fighting terrorism with determination, resolve, and in solidarity. NATO’s role in countering terrorism adds value to Allies’ national efforts and capacity to prevent, mitigate, respond to, and be resilient against acts of terrorism.
3. Allies recognise that most counter-terrorism (CT) tools remain primarily with national authorities. While nations retain the primary responsibility for their domestic security and their own resilience, the fight against terrorism still demands a coherent, steady effort by NATO and the international community as a whole, involving a wide range of instruments and actors.
4. Allies acknowledge that other international organisations have mandates and capabilities that enhance efforts to counter terrorism. NATO contributes to national and international efforts and capabilities, including by supporting its partners to further build their capacity to counter terrorism and address shared security challenges. Clear direction, enhanced coordination and greater consistency of efforts and activities will enable NATO to use its resources more effectively

II. Background

5. In the past decades, NATO has been making considerable progress in areas of importance to the Alliance such as operations, enhanced intelligence exchange, engagement with partners, including defence capacity-building packages and training on CT for partners, as well as the development of capabilities and technology solutions. In line with the Deterrence and Defence of the Euro-Atlantic Area Concept (DDA), Allies agreed a new family of plans, which significantly improves NATO’s ability and readiness to deter and defend against any threat, including the terrorist threat, in line with NATO’s 360-degree approach. NATO efforts to counter unmanned aircraft systems, and enable battlefield information management through biometrics, technical exploitation and battlefield evidence have been contributing important capabilities to the fight against terrorism. The Defence against Terrorism Programme of Work (DAT POW) has enabled the development of such capabilities. Other programmes, such as the Science for Peace and Security Programme, have also proven useful to support capability development. Sharing of national best practices and the inclusion of CT in NATO exercises and defence planning have made the Alliance more resilient and better prepared to counter the threat of terrorism. Additionally, the Secretary General has appointed a CT Coordinator both to serve as the Secretary General’s external representative for Alliance CT matters, and to ensure an effective and coherent response to terrorism within NATO, as agreed by Allies.
6. NATO has also been increasing support to partners through training and defence capacity building to more partners in areas relevant to the fight against terrorism.³ CT dialogues and mapping of CT support help to identify new areas for assistance in which NATO can provide more value-added support to partners in the fight against terrorism. Coordination with other international organisations, such as the United Nations (UN) and the European Union (EU), has allowed NATO to identify synergies and joint initiatives to strengthen the international response to terrorism.

III. Aim

7. These Policy Guidelines are the overarching document guiding the Alliance’s work in the area of CT. They aim to:

• Provide strategic direction to the CT activities ongoing across the Alliance as part of NATO’s core tasks of deterrence and defence, crisis prevention and management, and cooperative security.
• Re-state the principles to which the Alliance adheres in the fight against terrorism.
• Identify key areas in which the Alliance will undertake initiatives to enhance the prevention of, responsiveness to, and resilience against acts of terrorism with a focus on improved awareness of the threat, adequate capabilities to address it and engagement with partner countries and other international actors.⁴

IV. Principles

8. Compliance with International Law: NATO will continue to act in accordance with international law, the principles of the UN Charter and the Universal Declaration of Human Rights. The UN Global Counter-Terrorism Strategy, international conventions and protocols against terrorism and relevant UN Resolutions provide the framework for all national and multilateral efforts to combat terrorism, including those conducted by the Alliance. NATO and Allies will take a comprehensive approach, promote human rights and the rule of law, and include gender perspectives in their CT efforts, integrate the Women, Peace and Security (WPS) agenda and consider relevant aspects of human security in the fight against terrorism.
9. NATO’s Support to Allies: Individual NATO members have primary responsibility for the protection of their populations and territories against terrorism. Cooperation through NATO enhances Allies’ efforts to prevent, mitigate, respond to, and be resilient against acts of terrorism. NATO has a specific role in supporting these efforts since its updated defence plans address terrorism as one of the two main threats. NATO continues to help build Allied capabilities to counter the threat of terrorism. The Alliance also provides a forum for cooperation and consultation on terrorism matters, as well as for sharing of national experience and information, and capabilities with a view to enhancing Allies’ awareness of the threat from terrorism.
10. Non-Duplication and Complementarity: NATO will strive for avoiding unnecessary duplication of and promote complementarity with national and international efforts. NATO will seek to coordinate and leverage its expertise and resources and will focus on targeted programmes where it can contribute to and/or reinforce the actions of Allied nations and other international actors, as appropriate.

V. Key Areas

11. NATO has unique assets and capabilities that can support Allied efforts in the fight against terrorism. As set out in the aim of these Policy Guidelines, the Alliance will coordinate and consolidate its CT efforts and focus on three main areas: awareness, capabilities and preparedness, and engagement and cooperation.
12. Awareness: NATO continues to promote shared awareness of the terrorist threat and vulnerabilities among Allies through regular consultations, enhanced sharing of intelligence, continuous strategic analysis and assessments. As terrorists constantly adapt their techniques, tactics and procedures, NATO strives to remain aware and alert of the evolving threat. This enables Allies and the Alliance to prepare effectively and to take possible mitigating action in the prevention of and response to terrorist attacks. In addition, the Alliance further enhances its understanding of other areas relevant to NATO’s CT efforts through sharing of national and international expertise. NATO also promotes the understanding of its CT role as part of a broader international effort through engagement and strategic communications.
13. Capabilities and Preparedness: Allies’ national capabilities represent an essential component of a potential response to terrorism. NATO has acquired valuable expertise in countering asymmetric threats and developing Allies’ capabilities to counter terrorism, and continues to support their ability to prevent, protect against and respond to terrorist threats, based on the level of ambition as defined in the DDA. NATO considers further capability developments, innovative technologies, and methods that address asymmetric threats in a comprehensive and informed way, including through the DAT POW. Emerging and disruptive technologies provide new opportunities for our military to become more effective, resilient, cost-efficient, and sustainable, including in the fight against terrorism. NATO also strives to maintain its operational capacity and capitalises on the lessons learned in operations, including experience gained through national and Allied Special Operations Forces. NATO ensures the resources, capabilities, training, and command and control arrangements to deploy and sustain military and civilian crisis management, stabilisation, and CT operations, including at strategic distance. Training, education and exercises based on different threat scenarios are essential to improve interoperability by assimilating lessons learned and best practices.
14. Engagement and Cooperation: The threat of terrorism requires a holistic approach by the international community, involving a wide range of instruments, including the human security and WPS agendas. To enhance Allies’ security, NATO continues to engage with partners, international organisations and other actors in countering terrorism, in particular the EU, UN, International Criminal Police Organization (INTERPOL), Organisation for Security Cooperation in Europe (OSCE), the African Union (AU), and the Council of Europe to promote a common understanding of the evolving terrorist threat and to identify synergies in the global CT efforts. We enhance support for our partners, including to help build their capacity to counter terrorism and address shared security challenges. The Alliance enhances its support to the Global Coalition to Defeat Daesh. NATO enhances political dialogue and practical cooperation with partners using existing and dedicated mechanisms. Particular emphasis is placed on raising awareness, capacity building, promoting interagency cooperation, good governance and crisis prevention and management in order to respond to specific needs of partners’ and Allied interests. This is to advance partners’ preparedness and resilience as well as their identification of vulnerabilities and gaps and help partner countries to fight terrorism more effectively themselves. In line with the NATO 2030 agenda, CT training, education and support for capacity-building remains consistent with the objectives and priorities of NATO's policy on partnerships.

VI. NATO’s Response

15. The North Atlantic Council guides NATO’s CT efforts and implementation of these Policy Guidelines. The Political Committee oversees the day-to-day implementation of NATO’s activities in the fight against terrorism.
16. The Action Plan on Enhancing NATO’s Role in the International Community’s Fight Against Terrorism, operationalizes these updated guidelines. The Action Plan is subject to regular review to adequately reflect the evolution of the threat and the progress achieved.
17. Collective defence remains subject to decision by the North Atlantic Council.

1. 2022 NATO Strategic Concept.
2. As mentioned in agreed NATO strategic intelligence documents.
3. Relevant NATO Education and Training Facilities and NATO accredited Centres of Excellence, in particular the Defence Against Terrorism Centre of Excellence in its role as Department Head for the CT Discipline, have also been supporting NATO efforts in this regard.
4. NATO will undertake all its activities related to partners and other international organisations in accordance with relevant decisions taken by the Heads of State and Government, the Defense and Foreign Ministers, and the North Atlantic Council, in particular in accordance with the NATO Strategic Concept and the Comprehensive Approach Action Plan.