Terrorism - Definition

Definition

The definition of terrorism has proved controversial. Various legal systems and government agencies use different definitions of terrorism in their national legislation. Moreover, the international community has been slow to formulate a universally agreed, legally binding definition of this crime. These difficulties arise from the fact that the term "terrorism" is politically and emotionally charged. In this regard, Angus Martyn, briefing the Australian Parliament, stated that "The international community has never succeeded in developing an accepted comprehensive definition of terrorism. During the 1970s and 1980s, the United Nations attempts to define the term foundered mainly due to differences of opinion between various members about the use of violence in the context of conflicts over national liberation and self-determination."

These divergences have made it impossible for the United Nations to conclude a Comprehensive Convention on International Terrorism that incorporates a single, all-encompassing, legally binding, criminal law definition terrorism. Nonetheless, the international community has adopted a series of sectoral conventions that define and criminalize various types of terrorist activities. Moreover, since 1994, the United Nations General Assembly has repeatedly condemned terrorist acts using the following political description of terrorism: "Criminal acts intended or calculated to provoke a state of terror in the general public, a group of persons or particular persons for political purposes are in any circumstance unjustifiable, whatever the considerations of a political, philosophical, ideological, racial, ethnic, religious or any other nature that may be invoked to justify them."

Bruce Hoffman, a well-known scholar, has noted that:

It is not only individual agencies within the same governmental apparatus that cannot agree on a single definition of terrorism. Experts and other long-established scholars in the field are equally incapable of reaching a consensus. In the first edition of his magisterial survey, “Political terrorism: A Research Guide,” Alex Schmid devoted more than a hundred pages to examining more than a hundred different definition of terrorism in a effort to discover a broadly acceptable, reasonably comprehensive explication of the word. Four years and a second edition later, Schimd was no closer to the goal of his quest, conceding in the first sentence of the revised volume that the “search for an adequate definition is still on” Walter Laqueur despaired of defining terrorism in both editions of his monumental work on the subject, maintaining that it is neither possible to do so nor worthwhile to make the attempt.”

Nonetheless, Hoffman himself believes it is possible to identify some key characteristics of terrorism. He proposes that:

By distinguishing terrorists from other types of criminals and terrorism from other forms of crime, we come to appreciate that terrorism is :

• ineluctably political in aims and motives
• violent – or, equally important, threatens violence
• designed to have far-reaching psychological repercussions beyond the immediate victim or target
• conducted by an organization with an identifiable chain of command or conspiratorial cell structure (whose members wear no uniform or identifying insignia) and
• perpetrated by a subnational group or non-state entity.

A definition proposed by Carsten Bockstette at the George C. Marshall Center for European Security Studies, underlines the psychological and tactical aspects of terrorism:

Terrorism is defined as political violence in an asymmetrical conflict that is designed to induce terror and psychic fear (sometimes indiscriminate) through the violent victimization and destruction of noncombatant targets (sometimes iconic symbols). Such acts are meant to send a message from an illicit clandestine organization. The purpose of terrorism is to exploit the media in order to achieve maximum attainable publicity as an amplifying force multiplier in order to influence the targeted audience(s) in order to reach short- and midterm political goals and/or desired long-term end states."

Walter Laqueur, of the Center for Strategic and International Studies, noted that "the only general characteristic of terrorism generally agreed upon is that terrorism involves violence and the threat of violence". This criterion alone does not produce, however, a useful definition, since it includes many violent acts not usually considered terrorism: war, riot, organized crime, or even a simple assault. Property destruction that does not endanger life is not usually considered a violent crime, but some have described property destruction by the Earth Liberation Front and Animal Liberation Front as violence and terrorism; see eco-terrorism.

Terrorist attacks are usually carried out in such a way as to maximize the severity and length of the psychological impact. Each act of terrorism is a “performance” devised to have an impact on many large audiences. Terrorists also attack national symbols, to show power and to attempt to shake the foundation of the country or society they are opposed to. This may negatively affect a government, while increasing the prestige of the given terrorist organization and/or ideology behind a terrorist act.

Terrorist acts frequently have a political purpose. Terrorism is a political tactic, like letter-writing or protesting, which is used by activists when they believe that no other means will effect the kind of change they desire. The change is desired so badly that failure to achieve change is seen as a worse outcome than the deaths of civilians. This is often where the inter-relationship between terrorism and religion occurs. When a political struggle is integrated into the framework of a religious or "cosmic" struggle, such as over the control of an ancestral homeland or holy site such as Israel and Jerusalem, failing in the political goal (nationalism) becomes equated with spiritual failure, which, for the highly committed, is worse than their own death or the deaths of innocent civilians.

Very often, the victims of terrorism are targeted not because they are threats, but because they are specific "symbols, tools, animals or corrupt beings" that tie into a specific view of the world that the terrorists possess. Their suffering accomplishes the terrorists' goals of instilling fear, getting their message out to an audience or otherwise satisfying the demands of their often radical religious and political agendas.

Some official, governmental definitions of terrorism use the criterion of the illegitimacy or unlawfulness of the act. to distinguish between actions authorized by a government (and thus "lawful") and those of other actors, including individuals and small groups. Using this criterion, actions that would otherwise qualify as terrorism would not be considered terrorism if they were government sanctioned. For example, firebombing a city, which is designed to affect civilian support for a cause, would not be considered terrorism if it were authorized by a government. This criterion is inherently problematic and is not universally accepted, because: it denies the existence of state terrorism; the same act may or may not be classed as terrorism depending on whether its sponsorship is traced to a "legitimate" government; "legitimacy" and "lawfulness" are subjective, depending on the perspective of one government or another; and it diverges from the historically accepted meaning and origin of the term.

Among the various definitions there are several that do not recognize the possibility of legitimate use of violence by civilians against an invader in an occupied country. Other definitions would label as terrorist groups only the resistance movements that oppose an invader with violent acts that undiscriminately kill or harm civilians and non-combatants, thus making a distinction between lawful and unlawful use of violence. According to Ali Khan, the distinction lies ultimatedly in a political judgment.

An associated, and arguably more easily definable, but not equivalent term is violent non-state actor. The semantic scope of this term includes not only "terrorists", but while excluding some individuals or groups who have previously been described as "terrorists", and also explicitly excludes state terrorism. According to the FBI terrorism is the unlawful use of force or violence against persons or property to intimidate or coerce a government, the civilian population, or any segment thereof, in furtherance of political or social objectives.