The Belgian legal reaction to jihadist youngstersWouter Druwé (KU Leuven)

International Context• Syrian Civil War (2011 - …)

o Started with demonstrations, commonly referred to as the “Arab Spring”.o President al-Assad reacted violently, the opposition fought back…o Divided opposition: from moderate liberals and democrats to extremist

islamist and jihadist movements (ISIS, an-Nusra, Al Qaeda, …).o Fights amongst all parties, guerilla techniques, even with the use of

chemical weapons, …o The international community seems unable to offer any viable solutions.

• Extension to Iraq…o The civil war – especially by one of these opposition groups (ISIS or

“Islamic State”) – crossed the Iraqi borders. o Mass murdering keeps on happening every day; Christians, Jezidi’s and

many non-extremist Muslims endure constant unjust prosecutions, maltreatments and threats.

Belgian Context• More than 400 Belgian youngsters have left for Syria or

Iraq to join jihadist groups.o Relative to the Belgian population, this is a very high number!

• Some of them died, others returned, for different reasons.o The situation in Syria-Iraq did not live up to their expectations and

they were lucky to get back.o Some seem to have used the acquired ‘ideological’ background

for planning attacks in Europe.

• Two events shocked Belgian population:o Brussels: Terrorist attack on Jewish Museum (24 May 2014)o Verviers: Anti-terror operation of Belgian police. Concrete terrorist

attacks in Belgium were being planned. During the intervention, two presumed jihadists died. (15 January 2015)

Structure• Why are Belgian citizens joining jihadist groups?

• Repressiono De lege lata

• Concrete actions taken• Legal bases?

o De lege ferenda• New legislative proposals

• Preventiono Concrete actions taken

• Conclusion

Why are Belgian citizens joining jihadist groups? (1)

• Socio-economic background: unemployment, poverty, …?o Seems not to have been the most important factor…o A substantial part of the Jihadist youngsters have a middle-class

background (including even a son of a university professor), they had a job or even their own businesses, …

• Youngsters in an identity crisis!o They find answers to their existential questions in clear, black-

white positions of radical Islam.o They feel not understood by school, previous friends, family, … =>

further radicalisation!o Some organizations, like Sharia4Belgium, try to motivate them to

take up arms for the ‘good cause of Islam’…• Their solutions are described by returned ex-jihadists as a ‘convincing

drug’…

Why are Belgian citizens joining jihadist groups? (2)

• Feelings of injustice in Belgium, according to some of the jihadists interviewed by Montasser AlDe’meh (doctoral researcher, KU Leuven and UA)o “Discrimination on job market”o “Racism by police”o Social difficulties to practice their (radical) Islam: prohibition of

headscarves, niqabs, burqas, etc.o …

• Feelings of injustice about events in the Middle Easto Role of Israël and the Westo Desire to help the people of Syria in their fight against the

“tyrannic” president…

Repression de lege lata

• Anti-terrorism process, Antwerp (Criminal tribunal of first instance, 4th chamber)

o Who? • 46 people, amongst whom:

• Leaders of Sharia for Belgium (esp.: Fouad Belkacem)• “Syrian fighters”, some of them even presumably – but not officially – dead.

o Legal basis?• Leadership or membership of terrorist organisation (see next slides)

o Judgment 11 February 2015• Sharia for Belgium, as well as 2 Syrian jihadist groups = terrorist

organisations• Leaders => 10 to 15 years of imprisonment + fines of 24,000 – 30,000

euros• Members => up to 5 years of imprisonment + fines up to 15,000 euros• Leaders do not have to pay damages to parents of members.

o Some appealed, no final decision yet.

Repression de lege lata• Legal basis: articles 137-141ter Belgian Criminal Code (1)

o Terrorist group (art. 139):• “Constitue un groupe terroriste l’association structurée de plus de

deux personnes, établie dans le temps, et qui agit de façon concertée en vue de commettre des infractions visées à l’article 137.”• => Not a merely political, religious, charitable, syndical or philosophical group.

o Terrorist crimes (=> art. 137)• Different kinds of criminal behaviour (homicide, hostage-taking, bearing

of arms, making of explosive material, …), if combined with a certain intention to cause fear or to destabilize a country or international organisation: • “qui, de par sa nature ou son contexte, peut porter gravement atteinte à un

pays ou à une organisation internationale et est commise intentionnellement dans le but d’intimider gravement une population ou de contraindre indûment des pouvoirs publics ou une organisation internationale à accomplir ou à s’abstenir d’accomplir un acte, ou de gravement déstabiliser ou détruire les structures fondamentales politiques, constitutionnelles, économique ou sociale d’un pays ou d’une organisation internationale.”

Repression de lege lata

• Legal basis: articles 137-141ter Belgian Criminal Code (2)o Leadership of a terrorist group (art. 140 §2):

• 15 to 20 years of imprisonment• and: fine of 1,000 to 200,000 euros (x 6).

o Membership of a terrorist group (art. 140 §1)• “Toute personne qui participe à une activité d’un groupe terroriste, y

compris par la fourniture d’informations ou de moyens matériels au groupe terroriste, ou par toute forme de financement d’une activité du groupe terroriste, en ayant connaissance que cette participation contribue à commettre un crime ou un délit du groupe terroriste”

• 5 to 10 years of imprisonment and fine of 100 to 5,000 euros (x 6)

Repression de lege lata• Legal basis: articles 137-141ter Belgian Criminal Code (3)

o As of 2013: Recruitment (art. 140ter)• 5 to 10 years of imprisonment and fine of 100 to 5,000 euros (x 6)

o As of 2013: Calling for terrorist crimes (art. 140bis)• “Toute personne qui diffuse ou met à la disposition du public de toute

autre manière un message, avec l’intention d’inciter à la commission d’[une infraction terroriste], lorsqu’un tel comportement, qu’il préconise directement ou non la commission d’infractions terroristes, crée le risque qu’une ou plusieurs de ces infractions puissent être commises”• 5 to 10 years of imprisonment and fine of 100 to 5,000 euros (x 6)

o As of 2013: Following training for terrorist activities (art. 140quinquies)• “Toute personne qui, en Belgique ou à l’étranger, se fait donner des

instructions ou suit une formation (…) en vue de commettre [une infraction terroriste]• 5 to 10 years of imprisonment and fine of 100 to 5,000 euros (x 6)

Repression de lege ferenda

• Shortcomings of current sanctions

• Policy declaration of Home Secretary Jan Jambon (N-VA)o Prevention (see later), but also new repressive

measures

• Legislative proposals by majority

• Legislative proposals by opposition

• Status quaestionis: all proposals are still pending.

Repression de lege ferenda

• Limitations of present sanctions (1)o Loss of Belgian nationality? (Merckx)

• Current law:• Only for persons with a double nationality;• Only if they did not receive nationality because of a Belgian (adoptive) parent;• Only if they have been condemned to at least 5 years of imprisonment.

• More severity needed?• Proposal by Theo Francken (Secretary of State for migration, N-VA): creation of a

discretionary competence to be exercised by the Minister of Justice => highly debated…• Faster legal treatment => this proposal seems to have a parliamentary majority.• BUT:

- Quid human rights, esp. Art. 8 ECHR and the interests of (Belgian) family members?

- Where will those criminals then be tried?

Repression de lege ferenda

• Limitations of present sanctions (2)o Activation of mercenary law (Loi concernant les services dans une armée ou

une troupe étrangère se trouvant sur le territoire d’un Etat étranger) of 1 August 1979? (Langerock)• Fighting in a foreign army is punishable, but…• … only once by a Royal Decree a prohibition to fight in that particular

conflict is enacted.• Moreover, it is about an ‘instantaneous crime’ of engagement in such an

activity: once engaged, the crime does not continue. As a consequence, this Royal Decree would come too late… (strict interpretation of penal law)

• So, probably, a more severe reaction cannot be founded on our mercenary law.

Repression de lege ferenda

• Home Office Policy Declaration (“Ministre de l’Intérieur”/ “Minister van Binnenlandse Zaken” Jan Jambon (N-VA)): o Prevention (see later)o New repressive measures:

• Changes in Mercenary Law 1979• Higher punishments• More possibilities for loss of nationality• Refusal to return to Belgian territory

• Change of art. 63 Consular Code• Refusal of passport or voyage documents in case of a serious presumption of a

security threat.

• Police actions against jihadist websites• Allowing for anonymous patrolling on websites.

Repression de lege ferenda

• Legislative proposals, currently discussed in Parliament (1)o Proposal 14 January 2014 (Dallemagne – Matz, cdH)

• Withdrawal of identity card, passports and voyage documents,• on the demand of the mayor or police officials,• via a judicial procedure,• in case of serious indications that the person concerned will join

a terrorist group abroad.• Temporary withdrawal of 15 days by Public Prosecution,• to be confirmed by judge of first instance within 15 days.

o Since May 2014, however, cdH no longer forms part of the government. New proposals have been introduced by the new majority.

Repression de lege ferenda• Legislative proposals, currently discussed in Parliament (2)

o Proposal 14 January 2015 (Vuye – Metsu, N-VA), changing the Mercenary Law 1979.• The 1979 Mercenary Law has a different objective compared with

the laws against terrorist crimes.• More severe sanctions

• Now, it is 3 months to 2 years of imprisonment. It will become 5 to 10 years of imprisonment and a fine of 100 to 5,000 euros (x 6).

• Adding new sanctions (both to Mercenary and Anti-Terrorist Laws)• Loss of nationality, only for those criminals with a double nationality, but no

matter the way in which Belgian nationality was received (even if received by Belgian parents)!

• Prohibition of access to Belgian territory- Only to non-Belgian nationals (or to Belgian nationals who first lost their

nationality).- Subsidiary penalty (for those not respecting this prohibition): 5 to 10 years of

imprisonment.

Repression de lege ferenda• Legislative proposals, currently discussed in Parliament (3)

o Proposal 23 January 2015 (Lahaye-Battheu e.c., OpenVLD), changing Mercenary Law 1979• Instead of prohibition by Royal Decree, opting for the contrary solution: in

principle prohibited, unless allowed by Royal Decree.• Also punishing those who ‘fight in a foreign country’ as such, even if they

don’t join a terrorist group, unless it has been allowed by a Royal Decree.

o Proposal 14 January 2015 (Matz – Dallemagne, cdH), changing Code of Belgian Nationality• Automatic loss of Belgian nationality in case of conviction for certain

terrorist crimes.• Even for people who already received Belgian nationality more than 10

years ago• Also given an extra faculty to withdraw nationality in case a punishment

of 2 to 5 years imprisonment has been imposed.

Prevention (1)

• 12 policy measures of the Federal Government, amongst which:o Broadening of possibilities to use special methods of investigation;o Structural reforms of authorities competent to detect possible risks to

national security, better co-ordination and mutual information;o Prevention of radicalisation in prisons: detection of radicalised prisoners,

taking countermeasures in collaboration with Islam consultants, etc;o Some tasks of surveillance to be taken over by the army;o Strengthening of analysis capacity of our secret services.

• However, in the field of prevention, the federal authorities do not have many competences. Therefore, a brief look to the measures by the Flemish Region is necessary.

Prevention (2)

• “Actieplan Radicalisering” (Flemish Government, 8 April 2015) (1)o Better distribution of information, better co-ordinationo Co-operation with local authorities (subventions for officials that work with

youngsters in a vulnerable environment, investments to strenghten the labour market, …)

o Development of expertise and distribution of good practiceso Stimulating research into the motives for radicalisationo Extra training of local community workerso Discussions with representatives of the different religious and philosophical

groups (“vertegenwoordigers van de levensbeschouwingen”), including the professionalisation of imams – with hopefully in the near future a Flemish training programme for imams. Some imams are also sent to schools in order to hold a counterdiscourse.

Prevention (3)

• “Actieplan Radicalisering” (Flemish Government, 8 April 2015) (2)o Support of parents, with a help desk and contact point and the distribution

of information via the Forum for the Minorities (Minderhedenforum)o Strengthening of vulnerable youngsters (“weerbaarheidstraining”)o Support of organisations that can support youngsters in their search for

their identityo Helping the federal government to fight radicalisation in prisonso Providing an active Flemish public diplomacy giving a correct image of

what is happening abroad: development of a media strategy in order to fight polarising messages

Conclusion• A very complex situation abroad:

o To me, international diplomacy seems of the utmost importance in order to try to stop the Syrian-Iraq war and to protect religious minorities, including the Christians, in the Middle East.

• A very complex situation inside Belgium:o A mix of preventive and repressive measures has been developed,

but ideal solutions do not exist.o Still to be seen how the Muslim community will be able to cope with

and to prevent the radicalisation of a small minority of their members.• Some, like Kim Tondeur, are convinced that the measures taken by the

government(s) will stigmatize the Muslim community. I do not agree: it is a fact that especially Muslims have gone to fight in Syria. Moreover, the government tries precisely to work together with Islam consultants and Muslim representatives in order to fight the problem.

o But with all repressive measures: quid human rights?o More co-ordination on a European level is required…

Bibliography• Wetsvoorstel 14 januari 2014 betreffende de intrekking van de identiteits- en reisdocumenten van wie naar het buitenland

wil vertrekken om er te gaan strijden en er terroristische daden te plegen (Dallemagne – Matz), Parl. St. (Kamer) DOC 54 0797/001.

• Wetsvoorstel 14 januari 2015 tot wijziging van het Wetboek van de Belgische Nationaliteit, teneinde de mogelijkheden tot vervallenverklaring van de nationaliteit uit te breiden (Matz – Dallemagne), Parl. St. (Kamer) DOC 54 0796/001.

• Wetsvoorstel 14 januari 2015 betreffende de daadwerkelijke bestrijding van het jihadisme, de bescherming van de democratische instellingen en het waarborgen van de fundamentele vrijheden (Vuye – Metsu), Parl. St. (Kamer) DOC 54 0790/001.

• Wetsvoorstel 23 januari 2015 tot wijziging van de wet van 1 augustus 1979 betreffende diensten bij een vreemde leger- of troepenmacht die zich op het grondgebied van een vreemde staat bevindt (Lahaye-Battheu e.c.), Parl. St. (Kamer) DOC 54 0830/001.

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• A. Van Leuven, “De ‘activering’ van de Huurlingenwet als repressiemiddel voor de minderjarige in Syrië strijdende Syriëstrijders. ‘Le Regard Eloigné’”, TJK 2015/1, 41-47.

• Vlaamse Minister van Binnenlands Bestuur, Inburgering, Wonen, Gelijke Kansen en Armoedebestrijding, Actieplan ter preventie van radicaliseringsprocessen die kunnen leiden tot extremisme en terrorisme, 21 p.