Indian Council of World Affairs

The Brazil, Russia, India, China and South Africa (BRICS) represent not just States that together account for large territory, population, economy or military strength, but they together represent the voice of the countries that are increasingly finding their place in the new international order. Together the BRICS countries account for roughly 40 percent of the world population and 20 percent of the global economy. Together they are demanding a change of the international institutional setup and fighting for their rightful place on the agenda making table of international affairs.

They are also countries that are together are trying to reap the benefits of an inter-dependent global economy while also facing the challenges of an interconnected world. The five nations of the BRICS have aligned their views on a number of issues that are faced by the international community. They are together looking for a wide ranging cooperation in areas such as climate change, trade and terrorism.

This paper would be an attempt to understand the BRICS outlook towards terrorism. In an effort to do so, the paper will compare the BRICS Summit declarations (2009 to 2016) and try to understand if the BRICS has evolved its views on terrorism from the first summit held in Russia in 2009 to the latest summit that was held in Goa in 2017. Leaders of the five nations are due to meet for a summit in Xiamen, China in September 2017 to continue to further enhance the role of BRICS in counter- terrorism.

Based on the statements made on the issue of terrorism within the BRICS Declarations, an attempt has been made to understand the evolution of BRICS views on terrorism in the table below.

Conclusion

Terrorism is an ever growing global threat that affects all nations. It has become an areas of concern for the leaders of the BRICS nations , especially as terror groups have evolved in their methods of influencing and building support bases and there after carry out attacks on in various parts of the world. The BRICS have condemned all forms and manifestations of terrorism and have consistently urged the international community to come together to fight this menace. In 2015, with the ISIL as a major threat and other terror groups pledging alliance to them, the BRICS expanded their outlook to include all acts of terror based on religion and ideology. And with the migration crisis deepening in Europe and the growth in attacks on people of different races and ethnicity, they also included racial and ethnic attacks on groups or individuals as manifestations of terrorism. This condemnation was repeated in the Goa declaration of 2016, and is likely to be included in the 2017 BRICS declaration. The BRICS nations have repeatedly called for strengthening of domestic and international laws on the issue of terrorism.

Since the first BRICS Summit in 2009, the grouping has been consistent and unwavering in its support for the UN and has maintained that the UN remains the nodal agency for a multilateral approach to combating terrorism. Under this, they have maintained their support for the Comprehensive Convention on International Terrorism (CCIT) and have repeatedly urged other nations to adopt the convention. The Convention treaty states, “...resolved to take effective measures to prevent acts of terrorism and to ensure that perpetrators of terrorist acts do not escape prosecution and punishment by providing for their extradition or prosecution....”¹ The convention states that any person who commits certain acts² would be considered a terrorist and States would have to punish them with appropriate penalties. The nations need to continue to stand united and condemn all forms of terrorism and not divide them into ‘good’ and ‘bad’ terrorists. Due to uncertainty on how to define a terrorist and what it will encompass, the convention has not been adopted. From 2014, the BRICS nations have called for the implementation of the convention. This is a much needed especially as the BRICS members States repeatedly face terrorist threats.

The BRICS nations have expanded their position on counter-terrorism, over the years to collaborate with each other while they await the international consensus to build. In 2016, they set up a working group on counter-terrorism and they hold annual meetings of the National Security Advisors of the member countries. This allows for joint planning and sharing of intelligence.

Terror financing is another aspect of the issue that has gained prominence among the BRICS nations in the past few years and they have expressed their support to establish measures to block the possibility of terror financing from their territories. It is in this context that they have further urged the international community to adopt the CCIT. In 2012, the Financial Action Task Force of the G-20 made some recommendations to build a comprehensive framework to combat money laundering and terrorist financing, as well as the financing of proliferation of weapons of mass destruction. In keeping with this international effort to work towards ending the funding forterror groups to purchase weapons, services, etc the BRICS have in 2015 established the BRICS council on Anti- Money Laundering and countering the financing of terrorism.

As it becomes increasing clear that terror groups are using the internet to recruit members as well as to communicate with their supporters, the BRICS has tried to bring focus to building cooperation on information security. They have also linked this to the need to have robust cooperation on cyber security, as threat of hacking and use of malware to disrupt government functioning becomes a reality. With the rise of incidents of terror groups such as the ISIL using social media to lure young people to join the groups, entice others who are unable to join to carry out terror attacks in their own capacity as well as to distribute propaganda material, the BRICS have since 2014, incorporated the need to effectively use informational technology to counter the spread of terrorism. This is important as it is expected that with the growing youth bulge that will happen in countries of Africa, Asia and Latin America, the use of internet in these countries will grow. This could be used by terrorist groups to strengthen their organisations.

An important aspect to combating terrorism was added to the declaration in 2016 at the Goa Summit. The declaration included ‘dismantling of terror bases’ as another requirement in counter terrorism. This was keeping in mind India’s long standing flight against terrorism that has been supported from across its borders. It is hoped that this agenda point would be sustained in the BRICS Summit in China (2018) and India would continue to stress on it in all forums.

With the countries of the BRICS working together, they have tried to assist the Afghan government in bringing about peace and stability to the country and combat terrorism. As the international forces in Afghanistan have been withdrawn, the BRICS have reaffired their support for building a peaceful Afghanistan. Afghanistan borders three of the five BRICS nation and would like a secure nation contributing to the overall stability of the region. For India, Afghanistan has special significance not just based on the historical linkages between the two nations but also as a result of the reconstruction projects India has undertaken in the country. A stable Afghanistan is also an advantage for India in its fight against terrorism.

With the escalation in the Syrian crisis, and the growing influence of ISIL in the country in 2012, the BRICS nations called on all parties to end violence. The Ulfa decalaration, has provided considerable space to the conflict in Syria and stated that it calls for a consolidation of the Syrian society in the face of dangerous threats.” In the years after the Syrian crisis the BRICS declaration has also called on parties to the conflict to peacefully resolve the crisis and expressed concern over the rise of terrorism in the region. This focus on Syria in Ulfa is perhaps due to the support that has been extended by the Russian Government to the Syrian Government in the civil war as the 2016 declaration has no reference to the crisis.

As the ISIL grew as an umbrella organisation, that grew in influence and courted the support of other terror groups, in 2015, the BRICS condemned the growth of such outfits in its Ulfa declaration. As the BRICS builds its relations with countries of Africa, one finds that it has included terrors activities in the continent. It has condemned the violence perpetuated by Boko Haram and Al- Shabab. This continues in the 2016 Goa Summit as well. . 

The BRICS serves as an important organisation that helps the five countries to strengthen their relations and build their global influence. It is expected that in the 2017 Summit in China, a similar stand on combating terrorism will be taken by the five nations. Nonetheless, while they continue to stand together the BRICS countries need to highlight the steps that have been taken to counter- terrorism and radical ideology. India will continue to highlight issues of cross borer terrorism at the forum, but it is unlikely that other nations would be keen to allow such wording into the final declaration of the summit.

With the risk of chemical and biological weapons and possibly nuclear material being used by terrorist for ‘dirty bombs’ a possibility, BRICS nations need to work towards improving international security of all such materials, including in their respective territories. Weapons of Mass Destruction (WMDs) have found mention in the latest declaration (2016). It is in the intial stages with the members States willing to talk about the need to launch an international approach to combat this threat. In the meantime, they could work with the International Atomic Energy Agency (IAEA) to assist and support in its efforts to protect nuclear facilities and radiological material.

The BRICS nations have within them not just a representation of close to forty percent of the world population, but a significant number of them are young people who are a growing segment of the global internet/ social media community. The BRICS nations have to pay attention to issue of security of internet use. They have to find a path which does not lead to uncontrolled government surveillance of citizens but build a system that allows it monitor terror networks on the internet. They have to build a consensus on cyber security and exchange ideas and/or best practices on how to fight cyber crimes.

Together the BRICS face similar challenges and opportunities. As they find more commonalities on their view on global issues, it is hoped that they would be able to build a collaborative approach to achieving their goals.

***  

* The Author is Research Fellow with the Indian Council of World Affairs, New Delhi.

Disclaimer: Views expressed are of author and do not reflect the views of the Council. 

End Notes 

1 ---, “Draft of Comprehensive Convention on International Terrorism,” https://www.ilsa.org/jessup/jessup08/basicmats/unterrorism.pdf, Accessed on 03 August 2017.

2 Article Two states, “1. Any person commits an offence within the meaning of the present Convention if that person, by any means, unlawfully and intentionally, causes: (a) Death or serious bodily injury to any person; or (b) Serious damage to public or private property, including a place of public use, a State or government facility, a public transportation system, an infrastructure facility or to the environment; or

(c) Damage to property, places, facilities or systems referred to in paragraph 1 (b) of the present article resulting or likely to result in major economic loss; when the purpose of the conduct, by its nature or context, is to intimidate a population, or to compel a Government or an international organization to do or to abstain from doing any act. 2. Any person also commits an offence if that person makes a credible and serious threat to commit an offence as set forth in paragraph 1 of the present article. 3. Any person also commits an offence if that person attempts to commit an offence as set forth in paragraph 1 of the present article. 4. Any person also commits an offence if that person: (a) Participates as an accomplice in an offence as set forth in paragraph 1, 2 or 3 of the present article; or (b) Organizes or directs others to commit an offence as set forth in paragraph

1, 2 or 3 of the present article; or (c) Contributes to the commission of one or more offences as set forth in paragraph 1, 2 or 3 of the present article by a group of persons acting with a common purpose. Such contribution shall be intentional and shall either: (i) Be made with the aim of furthering the criminal activity or criminal purpose of the group, where such activity or purpose involves the commission of an offence as set forth in paragraph 1 of the present article; or (ii) Be made in the knowledge of the intention of the group to commit an offence as set forth in paragraph 1 of the present article.

ANNEXURE

BRICS Summit Declarations: Excerpts

Yekaterinburg, Russia (2009)[2] – “...We strongly condemn terrorism in all its forms and manifestations and reiterate that there can be no justification for any act of terrorism anywhere or for whatever reasons. We note that the draft Comprehensive Convention against International Terrorism is currently under the consideration of the UN General Assembly and call for its urgent adoption.”

Brasilia, Brazil (2010)[2] –“...We condemn terrorist acts in all forms and manifestations. We note that the fight against international terrorism must be undertaken with due respect to the UN Charter, existing international conventions and protocols, the UN General Assembly and Security Council resolutions relating to international terrorism, and that the prevention of terrorist acts is as important as the repression of terrorism and its financing. In this context, we urge early conclusion of negotiations in the UN General Assembly of the Comprehensive Convention on International Terrorism and its adoption by all Member States. “

“Brazil and China express their sympathy and solidarity with the people and Governments of Russia and India which suffered from recent barbaric terrorist attacks. Terrorism cannot be justified by any reason.”

Sanya, China (2011)[2] –“We reiterate our strong condemnation of terrorism in all its forms and manifestations and stress that there can be no justification, whatsoever, for any acts of terrorism. We believe that the United Nations has a central role in coordinating the international action against terrorism within the framework of the UN Charter and in accordance with principles and norms of the international law. In this context, we urge early conclusion of negotiations in the UN General Assembly of the Comprehensive Convention on International Terrorism and its adoption by all Member States. We are determined to strengthen our cooperation in countering this global threat. We express our commitment to cooperate for strengthening international information security. We will pay special attention to combat cybercrime.”

Delhi, India (2012)[2] – “...We affirm our commitment to support Afghanistan's emergence as a peaceful, stable and democratic state, free of terrorism and extremism, and underscore the need for more effective regional and international cooperation for the stabilisation of Afghanistan, including by combating terrorism.”

“We reiterate that there can be no justification, whatsoever, for any act of terrorism in any form or manifestation. We reaffirm our determination to strengthen cooperation in countering this menace and believe that the United Nations has a central role in coordinating international action against terrorism, within the framework of the UN Charter and in accordance with principles and norms of international law. We emphasize the need for an early finalization of the draft of the Comprehensive Convention on International Terrorism in the UN General Assembly and its adoption by all Member States to provide a comprehensive legal framework to address this global scourge.”

Durban, South Africa (2013)[2]- “...We affirm our commitment to support Afghanistan’s emergence as a peaceful, stable and democratic state, free of terrorism and extremism, and underscore the need for more effective regional and international cooperation for the stabilisation of Afghanistan, including by combating terrorism....”

“We reiterate our strong condemnation of terrorism in all its forms and manifestations and stress that there can be no justification, whatsoever, for any acts of terrorism. We believe that the UN has a central role in coordinating international action against terrorism within the framework of the UN Charter and in accordance with principles and norms of international law. In this context, we support the implementation of the UN General Assembly Global Counter-Terrorism Strategy and are determined to strengthen cooperation in countering this global threat. We also reiterate our call for concluding negotiations as soon as possible in the UN General Assembly on the Comprehensive Convention on International Terrorism and its adoption by all Member States and agreed to work together towards this objective.”

Fortaleza, Brazil (2014)[2] – “We reiterate our condemnation of terrorism in all its forms and manifestations, wherever it occurs. We are gravely concerned at the continued threat of terrorism and extremism in Syria. We call on all Syrian parties to commit to putting an end to terrorist acts perpetrated by Al-Qaeda, its affiliates and other terrorist organizations.”

“... We also reaffirm our commitment to support Afghanistan's emergence as a peaceful, stable and democratic state, free of terrorism and extremism, and underscore the need for more effective regional and international cooperation for the stabilization of Afghanistan, including by combating terrorism. We extend support to the efforts aimed at combating illicit traffic in opiates originating in Afghanistan within the framework of the Paris Pact. We expect a broad-based and inclusive peace process in Afghanistan which is Afghan-led and Afghan-owned....”

“We reiterate our strong condemnation of terrorism in all its forms and manifestations and stress that there can be no justification, whatsoever, for any acts of terrorism, whether based upon ideological, religious, political, racial, ethnic, or any other justification. We call upon all entities to refrain from financing, encouraging, providing training for or otherwise supporting terrorist activities. We believe that the UN has a central role in coordinating international action against terrorism, which must be conducted in accordance with international law, including the UN Charter, and with respect to human rights and fundamental freedoms. In this context, we reaffirm our commitment to the implementation of the UN Global Counter-Terrorism Strategy. We express our concern at the increasing use, in a globalized society, by terrorists and their supporters, of information and communications technologies (ICTs), in particular the Internet and other media, and reiterate that such technologies can be powerful tools in countering the spread of terrorism, including by promoting tolerance and dialogue among peoples. We will continue to work together to conclude as soon as possible negotiations and to adopt in the UN General Assembly the Comprehensive Convention on International Terrorism. We also stress the need to promote cooperation among our countries in preventing terrorism, especially in the context of major events.”

Ufa, Russia (2015)[2] – “We reiterate our strong condemnation of terrorism in all its forms and manifestations and stress that there can be no justification, whatsoever, for any acts of terrorism, whether based upon ideological, religious, political, racial, ethnic, or any other justification.”

We are determined to consistently strengthen our cooperation in preventing and countering international terrorism. We stress that the UN has a central role in coordinating international action against terrorism, which must be conducted in accordance with international law, including the UN Charter, international refugee and humanitarian law, human rights and fundamental freedoms.We believe that terrorist threats can be effectively addressed through a comprehensive implementation by states and the international community of all their commitments and obligations arising from all relevant resolutions of the UN Security Council and the UN Global Counter-Terrorism Strategy. We call upon all states and the international community to adhere to their commitments and obligations and in this regard to resist political approaches and selective application. The BRICS countries reaffirm their commitment to the Financial Action Task Force (FATF) International Standards on Combating Money Laundering and the Financing of Terrorism& Proliferation. We seek to intensify our cooperation in FATF and FATF-style regional bodies (FSRBs).”

“We recognize that active international collaboration to counter the spread of violent extremism and its ideologies is a necessary prerequisite in the fight against terrorism. At the same time, we underscore that international cooperation on those tracks should rest upon international law taking into consideration that it is the sovereign governments that bear the primary responsibility for preventing and countering violent extremism-related threats.”

“Information and communications technologies provide citizens with new tools for the effective functioning of economy, society and state. ICTs enhance opportunities for the establishment of global partnerships for sustainable development, the strengthening of international peace and security and for the promotion and protection of human rights. In addition, we express our concern over the use of ICTs for purposes of transnational organized crime, of developing offensive tools, and conducting acts of terrorism. We agree that the use and development of ICTs through international cooperation and universally accepted norms and principles of international law is of paramount importance in order to ensure a peaceful, secure and open digital and Internet space. We reiterate our condemnation of mass electronic surveillance and data collection of individuals all over the world, as well as violation of the sovereignty of States and of human rights, in particular, the right to privacy....”

“...we express deep concern about the ongoing violence in Syria, the deteriorating humanitarian situation and the growing threat of international terrorism and extremism in the region. ... Condemning terrorism in all its forms and manifestations, we call for consolidation of Syrian society in the face of this dangerous threat, strict implementation by the international community of all provisions of the UN Security Council resolutions 2170, 2178 and 2199, particularly dealing with suppression of financing and other forms of supporting terrorists, as well as for compliance with universally recognized norms of international law related to countering terrorism and extremism, including the principles of respect for the sovereignty of the states.”

“We condemn in the strongest terms terrorism in all its forms and manifestations, the continued, widespread and grave abuses of human rights and violations of international humanitarian law committed by the so-called Islamic State of Iraq and the Levant, Al-Nusrah Front and associated terrorist groups, and in particular the persecution of individuals and communities on the basis of their religion or ethnicity, as well all forms of violence against civilians, particularly women and children.”

“We remain concerned about the security in Afghanistan. We reiterate that terrorism and extremism pose a serious threat to the security and stability of Afghanistan, the region and beyond. The appearance and rapid growth of influence of the ISIL, as well as visible deterioration of the security situation along the border of Afghanistan are of serious anxiety. We support the efforts made in fighting against terrorism and extremism in Afghanistan.”

“...We express our solidarity with the Government and the people of Kenya in their struggle against terrorism. We stress that there can be no justification for terrorism whatsoever.”

“We also express deep concern about the scourge of terrorism and violent extremism and condemn the terrorist acts perpetrated by Al-Shabaab, Boko Haram and other groups, which pose a serious threat to peace and stability in Africa.”

Goa, India (2016)[2] – “We express deep concern at the persisting security challenges in Afghanistan and significant increase in terrorist activities in Afghanistan. We affirm support to the efforts of the Afghan Government to achieve Afghan-led and Afghan-owned national reconciliation and combat terrorism, and readiness for constructive cooperation in order to facilitate security in Afghanistan, promote its independent political and economic course, becoming free from terrorism and drug trafficking. The Leaders expressed the view that capable and effective Afghan National Security Forces (ANSF) should be the key to the stabilisation of Afghanistan....”

“We express our concern that political and security instability continues to loom in a number of countries that is exacerbated by terrorism and extremism. We call upon the international community through the United Nations, African Union and regional and international partners to continue their support in addressing these challenges, including post-conflict reconstruction and development efforts.”

“We strongly condemn the recent several attacks, against some BRICS countries, including that in India. We strongly condemn terrorism in all its forms and manifestations and stressed that there can be no justification whatsoever for any acts of terrorism, whether based upon ideological, religious, political, racial, ethnic or any other reasons. We agreed to strengthen cooperation in combating international terrorism both at the bilateral level and at international fora.”

“To address the threat of chemical and biological terrorism, we support and emphasise the need for launching multilateral negotiations on an international convention for the suppression of acts of chemical and biological terrorism, including at the Conference on Disarmament. In this context, we welcome India’s offer to host a Conference in 2018 aimed at strengthening international resolve in facing the challenge of the WMD-Terrorism nexus.”

“We call upon all nations to adopt a comprehensive approach in combating terrorism, which should include countering violent extremism as and when conducive to terrorism, radicalisation, recruitment, movement of terrorists including Foreign Terrorist Fighters, blocking sources of financing terrorism, including through organised crime by means of money-laundering, drug trafficking, criminal activities, dismantling terrorist bases, and countering misuse of the Internet including social media by terror entities through misuse of the latest Information and Communication Technologies (ICTs).Successfully combating terrorism requires a holistic approach. All counter-terrorism measures should uphold international law and respect human rights. “

“We acknowledge the recent meeting of the BRICS High Representatives on National Security and, in this context, welcome the setting up and the first meeting of the BRICS Joint Working Group on Counter-Terrorism on 14 September 2016 in New Delhi. We believe it will further promote dialogue and understanding among BRICS nations on issues of counter terrorism, as well as coordinate efforts to address the scourge of terrorism.”

“We acknowledge that international terrorism, especially the Islamic State in Iraq and the Levant (ISIL, also known as Daesh) and affiliated terrorist groups and individuals, constitute a global and unprecedented threat to international peace and security. Stressing UN’s central role in coordinating multilateral approaches against terrorism, we urge all nations to undertake effective implementation of relevant UN Security Council Resolutions, and reaffirm our commitment on increasing the effectiveness of the UN counter terrorism framework. We call upon all nations to work together to expedite the adoption of the Comprehensive Convention on International Terrorism (CCIT) in the UN General Assembly without any further delay. We recall the responsibility of all States to prevent terrorist actions from their territories.”

“We reaffirm our commitment to the FATF International Standards on Combating Money Laundering and the Financing of Terrorism and Proliferation and call for swift, effective and universal implementation of FATF Consolidated Strategy on Combating Terrorist Financing, including effective implementation of its operational plan. We seek to intensify our cooperation in FATF and FATF style regional bodies (FSRBs).”

“...We note with deep concern the increasing links between drug trafficking and terrorism, money laundering and organised crime. We commend the cooperation between BRICS drug control agencies and welcome the deliberations in second Anti-Drug Working Group Meeting held in New Delhi on 8 July 2016.”