DOMESTIC SECURITY REPORT SWITZERLAND 2004

Summary

Focal points 2004 78

Overall assessment 80

Measures 81

REPORT 2004

DOMESTIC

SECURITY REPORT

SWITZERLAND

2004

D O M E S T I C S E C U R I T Y R E P O R T S W I T Z E R L A N D78

Attack by Islamic terrorists in Madrid

On 11 March 2004, 191 people were killed andnearly 2,000 injured when ten remote-controlledbombs were detonated.This was the first time thata West European country became a target of theglobal Jihad movement.The suspects were mostlyof Moroccan origin but had lived in Spain fora long time. The choice of target by jihadistterrorists is determined largely by factors such as

knowledge of the area andlogistical practicality ratherthan the political significanceof the target. This qualifiesthe assumption that theattacks were connected to

Spain’s involvement in the Iraqi war. Iraq, how-ever, remained the focal point of Islamic terrorismin 2004, and Saudi Arabia, too, was shaken by awave of terrorist attacks carried out by the localAl Qaeda cells.

Activities in Switzerland by Islamic extremists

Up to now there has been no indication oftraces leading from the perpetrators of the attacksin Madrid to Switzerland.

Investigations by the Spanish police into othersuspected terrorist cells revealed that the proba-ble leader of the group, Mohamed Achraf, was in

Switzerland. Based on the in-formation obtained from theSpanish authorities, and as aresult of close cooperation

between various Swiss authorities, the FederalOffice of Police / fedpol (Service for Analysis andPrevention / SAP) was able to identify and trackthe suspect down before handing him over to thelaw enforcement and legal assistance agencies.

The Spanish authorities suspect that Achraftravelled to Switzerland in order to meet with aPalestinian IT specialist from Germany and toraise funds for the attack. However, the intendedpurchase of 500 kilograms of explosives was nevermade. The Office of the Attorney General ofSwitzerland is currently investigating whetherAchraf was also trying to set up a terrorist networkin Switzerland besides just trying to obtain logisti-cal assistance.

In December 2003 and January 2004, ninepeople were arrested in connection with anotherinvestigation into the attacks in Riyadh in SaudiArabia. Those arrested are suspected of havingestablished a network to provide logisticalsupport for international Islamic terrorism and,among other things, of having transferred moneyobtained from illegal activities such as the smug-gling of economic migrants to a Yemeni non-governmental organisation said to have ties toAl Qaeda.

Terrorist financingSwitzerland is affected by crime in connection

with the logistical support and financing but doesnot play a central role in the funding of Islamicterrorism. International at-tempts to combat terrorismby quelling its financing havenot yet led to the desired effectbecause the successful suppression of Al Qaeda’sstructures of command has given rise to othersmaller chains of command. It seems that smallcells such as these often finance themselvesthrough criminal activities.

ChechnyaThe war in Chechnya entered the internation-

al headlines again with the brutal hostage-takingin a school in Beslan in North Ossetia. SchamilBassajew is said to be responsible for the action,which killed and injured hundreds. The crime wasmotivated by a move for regional independenceand Islamic terrorism.

Right-wing extremismActivities by right-wing extremists mainly

pose a danger to local public order. Whilst thestructure and the activities of the right-wing scenehave not changed in the last few years, there havebeen two remarkable developments. One con-cerns the election success ofthe “Partei National Orien-tierter Schweizer“ (PNOS)and its subsequent entry intothe town council of Langenthal in October.On theother hand, right-wing extremists groups, whichare becoming larger, continue to use violence, and

Focal points 2004

R E P O R T 2004 S U M MARY

Local threatto public security.

Mohamed Achraf identified in Switzerland.

For the first time, a West European country became the target of an Islamist terrorist attack.

Switzerland has no central role.

D O M E S T I C S E C U R I T Y R E P O R T S W I T Z E R L A N D 79

in particular confrontation with the left-wing ex-tremists is becoming more and more aggressive.

Violence by left-wing extremistsThe main problem concerning left-wing ex-

tremism is the confrontation between right-wingand left-wing extremist groups,which contains the

biggest potential for violence.In 2004 there were two maindevelopments; the increasingdecentralisation of the left-wing extremist scene attract-ing attention through actions

in smaller and medium-sized towns, and thetargeting of left-wing extremist actions againstsupposed excessive repression by the police andjudicial authorities.

HooliganismViolence at football and ice-hockey matches is

on the increase. A new dimension to hooliganismis added by the fact that violence is no longer lim-ited to matches in the upper leagues. Further-more, hooligans from abroad are attending Swissleague matches more and more often.

Illegal intelligence gatheringIllegal intelligence activities are mainly con-

centrated on gathering information in the areas ofindustry, research and technology.

A foreign embassy employee, who was alsostationed in Switzerland, gathered mainly politi-cal information over a period of several years foran Eastern third country. He continued his illegalintelligence activities even during his time inSwitzerland but maintains that he did not supplyinformation on Switzerland or its citizens.

ProliferationIn 2004 the network specialised in nuclear

technology belonging to the “father“ of thePakistani atomic bomb, Dr.Adbul Qadeer Khan, wasuncovered. Two attempts toexport Russian aluminium

pipes have been successfully prevented. InOctober the Office of the Attorney General ofSwitzerland opened an investigation againstseveral Swiss nationals suspected of violatinglegislation on dual-use goods and war material.

Organised crimeInvestigations on organised crime remained a

focal point of fedpol and the Attorney General’sOffice in 2004. Proceedings concerning organisedcrime are extraordinarily complex and time-con-suming and, therefore, require considerableresources. In 2004 the federaland cantonal police forceswere largely preoccupied bytwo large-scale police opera-tions against people fromSwitzerland and abroad suspected of being in-volved in organised crime.

Groups active in Switzerland include Swisscriminal groups, mafia groups from Italy, criminalgroups from South Eastern Europe, Central andSouth America, the Middle East and the Com-monwealth of Independent States (CIS) as wellas West African criminal networks.

Criminal organisations from the Commonwealth of Independent States (CIS)

Criminal organisations from the CIS useSwitzerland primarily to legalise and invest ill-gotten profits for example from the embezzle-ment of state funds, subsidy fraud and othermeans of fraud. Other suspected sources ofrevenue include drug and arms trafficking.Representatives of these groups act as businesspeople and set up companies in Switzerland.Theyoften have contacts to off-shore firms and investtheir money in the name of these companies underthe pretence of legal businessdealings. The threat posed bymembers of criminal organi-sations from the CIS is hardlyperceived by the public in Switzerland or in theother West European countries.

Members of criminal organisations from theCIS obtained a residence permit for Switzerlandby bribery and by submitting false information.Dubious investors partly obtain residence or workpermits by offering to make large-scale invest-ments, create employment and by claiming to bea source of revenue. With large sums of moneyand using methods tested in corrupt states, theypose a serious threat to the free market economy,to democratic institutions and to the image of theSwiss financial centre.


Direct confrontationbetween left-wing and right-wing extremists is the major problem.

Money laundering offencesat the forefront.

Prevention against organisedcrime is one of the mainfields of fedpol’s activities.

Abdul Qadeer Khan’s network revealed.

D O M E S T I C S E C U R I T Y R E P O R T S W I T Z E R L A N D


80

DrugsDespite a decrease in the trade and con-

sumption of heroin on the black market inSwitzerland, this substance remains a seriousproblem. Cocaine is still fashionable. Groupsfrom the Dominican Republic, which are alsoactive in the United States and the Netherlandsamongst other places, have established them-selves in the cocaine market and mainly trafficlarge quantities. Due to the closing down of manyhemp shops the trade in cannabis products iscarried out once again in secret. “Hemp tourism“has decreased considerably in Switzerland.

Human trafficking and smugglingHuman trafficking and smuggling are becom-

ing increasingly difficult to define as a separatephenomenon. Traffickers areprofessional and employ effi-cient methods. Apart fromthe classic offence of assisting

people over the border illegally,human smugglingalso includes the forgery of identity and traveldocuments, and obtaining entry and residentpermits under false pretences. Human traffickingno longer only serves the purpose of sexualexploitation of the victims, but also of exploitingcheap labour, coercing victims into committingoffences and exploiting the trade in humanorgans.

Money launderingIn 2004 Switzerland was affected by several

cases of money laundering in connection withorganised crime, international drug trafficking,transnational corruption and economic crime.The number of federal investigations hasremained stabile in the last three years. All thecases illustrate how complex the offences are andunderline the extensive evidence required inmoney laundering proceedings.

Child pornographyIn 2004 four large-scale international opera-

tions in the field of child pornography led to policeaction also in Switzerlandagainst hundreds of suspectsfrom all cantons. Thanks alsoto coordination by fedpol(Federal Criminal Police), the operations weresuccessful.

Based on the analysis of the data gathered onthe suspects, there is reason to believe that an in-creasing number of suspects are no longer onlymotivated by curiosity; a large number of con-sumers of child pornography are recidivists andchild abusers.

The legal proceedings initiated as a result ofthe police operation known as Genesis in 2002have now been concluded in the first instance.Thedecision by the Federal Court ruling that down-loading illegal pornography is to be viewed as pro-ducing it, will have an influence on the futureadministration of justice.

Professional traffickers at work.

Four large-scale international operations.

Attitude of the Swiss population to Islam

There were no terrorist attacks in Switzerlandin 2004.The threat remains unchanged.Following

attacks or assassinations moti-vated by Islamism elsewhere,there is, however, a more neg-

ative attitude towards Islam. The majority ofMoslems living in Switzerland do not support thegoals of Islamists or the use of violence advocatedby extremists and terrorists.

There is an ongoing debate in Europe aboutthe relationship between Europe and Islam as a

result of negotiations between the EU and Turkeyon the latter’s entry into the Union. Following themurder of the filmmaker Theo van Gogh in theNetherlands, there were attacks on mosques,Moslem schools and also on churches. Theseevents led to an intense debate on Dutch integra-tion policy and multiculturalism in the Nether-lands.

Extremism and organised crimeIt is becoming increasingly apparent that

there is a strong connection between terroristgroups and other areas of crime ranging from

Overall assessment

Intensive debates in Europe.



81

petty crime to organised crime. One example ofthis is the connection between criminal groups ofethnic Albanians and ethnic Albanian extremists.The crushing of Al Qaeda commando structureshas led to the establishment of smaller cells thatoperate independently and are financed by vari-ous legal and illegal sources, the latter includingpetty crime and human smuggling, which is close-ly connected to organised crime.

Organised crime in EuropeIt is difficult at present to estimate to what ex-

tent East European enlargement will have an

influence on developments regarding organisedcrime. However, considering the developmentsof the last few years, it is essential that this phe-nomenon be observed closely.National security agencies willhave to remain vigilant andaim their preventive and re-pressive measures at this formof threat to national security. In view of thetransnational nature of organised crime, it isessential that measures be coordinated on a na-tional and international level.

National and internationalcoordination of measures necessary.

Terrorism preventionIn connection with the revision of the Federal

Act on Measures for Safeguarding NationalSecurity (Bundesgesetz über Massnahmen zurWahrung der inneren Sicherheit II) efforts arecurrently underway to grant the police increasingpowers with regard to preventive measures.Other

measures, such as the supportof moderate Moslem forces,are also a way of helping to

prevent extremism. In view of the increasinglyhostile attitude towards Islam, it is important notto overlook positive signs such as the Moslemsof France, who distanced themselves from thehostage-taking in Iraq, which was aimed at pre-venting legislation against displaying religioussymbols in public schools, or the Moslems in Basleand Sion, who reported fanatic preachers to thepolice.

Europol agreementOn 24 September 2004 a cooperation agree-

ment was signed between the European policeagency Europol and Switzer-land to enable the latter tocooperate with Europol in thefight against organised crimeand terrorism. The agreement

should come before the Federal Parliament in2005.

Europol was founded in 1999 by the EuropeanUnion to support the individual EU memberstates in the fight against crime. The agreement

allows Switzerland to exchange strategic and op-erational information, expertise, threat analysesand information on individual case investigationswith the EU member states. Cooperation is basedon eight areas of crime including terrorism, illegaltrafficking of nuclear and radioactive substances,human trafficking and smuggling, drug traffick-ing,vehicle crime,currency counterfeiting and thecounterfeiting of other means of payment, andmoney laundering in so far as it is connected to oneof the above-mentioned crimes. The agreementcontains several provisions on data protection inorder to safeguard the privacy of citizens guaran-teed by the constitution.There are plans to stationSwiss liaison officers at the European headquar-ters in The Hague.

International cooperation by Switzerland incrime-fighting is based on three areas: Interpol,bilateral police cooperation agreements and mul-tilateral agreements. The agreement with Eu-ropol is an important component of multilateralcooperation,and the Schengen Agreement,whichincludes the Schengen Information System crimedatabank, is an essential part of cooperation withEuropol.

Conclusion of the USIS projectThe Review of the Internal Security System

of Switzerland, the so-calledUSIS project, was concludedin 2004. On 24 March 2004 theFederal Council, in unisonwith the decisions by the Conference of Cantonal

More powers for the police in prevention.

International cooperation incombating crime based onthree pillars.

New measures fit into theexisting system.

Measures



82

Justice and Police Directors (KKJPD) of 20February 2004, agreed to four proposals con-tained in the final report by USIS IV to regulatefederal responsibility for security duties by thepolice:1. In connection with the protection of em-

bassies, the army will take on stationary dutiesaccording to the subsidiarity principle and ona permanent basis. The police will remainresponsible for mobile controls and interven-tion.

2. In order to implement security measures inaviation (so-called Tiger/Fox), there are to bebinding agreements with the cantonal policeforces.

3. Special police units responsible for personalprotection will be assisted by the supplemen-tary deployment of specialized military policepersonnel.

4. The Federal Council took note of the state-ments made by USIS on conference protec-tion.Finally,various options regarding the Swiss se-

curity system were reviewed in detail in the eventthat Switzerland joins the Schengen and Dublinagreements. In October the Federal Council, inunison with the KKJPD, agreed to close coopera-tion between the cantonal police forces and theBorder Guard Corps.

The cantons are to retain their sovereignty inpolice matters, and the details of cooperation be-tween the Border Guard Corps and the individualcantons are to be regulated in separate agree-ments. As a result, the resolution of the FederalCouncil reinforces the current practice. The mod-el enables the new measures regarding the securi-ty duties of the police to be integrated into thepresent security system.

Propaganda advocating violenceand violence at sporting events

In connection with the revision of the FederalAct on Measures for Safeguarding National Secu-rity, more preventive measures are being plannedin the fight against hooliganism. These measuresinclude the creation of a national hooligan data-bank, limitations on movement within and partic-

ularly outside of the stadium,bans on leaving the country,mandatory registration and, as

a last resort, police detention. In the long-termthere will also be a need for cross-border meas-ures and close international cooperation between

the authorities. The Federal Act on Measuresagainst Propaganda advocating Violence and Vi-olence at sporting Events will retain a clause onpropaganda advocating violence.

ProliferationIn order to improve the control of the export of

war materials and dual-use goods, fedpol (SAP)has developed an awareness programme for busi-nesses known as PROPHYLAX. Companies thattrade with high-risk countries are visited systemat-ically.The programme has received a positive echo.

Illegal intelligenceFedpol (SAP) and on its behalf the cantonal

and municipal police forces run advisory andawareness programmes on espionage and prolif-eration for representatives from the economicsector, science and industry. The awareness pro-gramme includes a brochure entitled “Spionage,Proliferation / 2 Realitäten, 2 Bedrohungen“.

Swiss Reporting and Analysis Unitfor Information Security (MELANI)

More and more home computers are con-stantly connected to theInternet despite the fact thatthey do not have adequateprotection. Home-users needto be informed of the dangers,which is why the federalgovernment has set up the Swiss Reportingand Analysis Unit for Information Security(www.melani.admin.ch). MELANI provides in-formation on the threats related to informationand communication technology to individuals aswell as to small and medium-sized businesses.

Federal Act on Undercover Investigations

The Federal Act on Undercover Investiga-tions came into force on 1 January 2005 and regu-lates the use of undercover operations in federaland cantonal criminal proceedings.The Act limitsthe use of this kind of police action to particularlyserious offences listed in a crime catalogue. Un-dercover investigations must be proportional andmay only be carried out if other forms of investi-gation were unsuccessful or are futile. Moreover,they have to be authorised by a court of law.

Fight against hooliganism.

Information for privateindividuals as well as forsmall and medium-sized businesses.



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Measures against human trafficking and smuggling

Both on an international and national level,efforts are being made to combat human traffick-ing and smuggling. On the international scene,

Switzerland is involved in theactivities of the Organisationfor Security and Cooperationin Europe (OSCE) and is

planning to ratify both protocols against thetrafficking and smuggling of human beings,supplementing the United Nations Convention

against Transnational Organized Crime. It alsoplans to ratify the Optional Protocol to the Con-vention on the Rights of the Child on the sale ofchildren, child prostitution and child porno-graphy. In connection with the ratification, theprovisions on human trafficking contained in theSwiss Criminal Code (Article 196) are to berevised. Efforts are also underway to revise theVictim’s Assistance Act and the Foreign Nation-als Act. Other legislative and official measuresand regulations to step up the fight against humantrafficking and smuggling are being planned ona national and cantonal level. ■

More restrictive measures on all levels.

I M P R E S S U M

R E D A K T I O N

Dienst für Analyse und Prävention, Abteilung Analyse

R E D A K T I O N S S C H L U S S

Ende Januar 2005

K O N TA K TA D R E S S E

Bundesamt für PolizeiNussbaumstrasse 29CH-3003 BernE-Mail: [email protected] 031 323 11 23www.fedpol.admin.ch

K O N Z E P T I O N , G E S TA LT U N G

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DOMESTIC SECURITY REPORT SWITZERLAND 2004

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