Italy's Draft Law on the Prevention of Radicalization: A Missed Opportunity? - Istituto ...
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Italy’s Draft Law on the Prevention of
© 2017 IAI
Radicalization: A Missed Opportunity?
by Francesca Capano
ISSN 22532-6570
As Italy prepares for long-awaited On 28 November, in the northern city of
general elections planned for March Como, a group of right-wing skinheads
2018, a series of events involving acts interrupted a meeting of local NGOs
of political intimidation and outright discussing means to integrate migrants
physical threats have been registered in into the social fabric of the city.1 No
a number of Italian cities. A far cry from violence occurred, but the group forced
the reoccurring incidents of political their way into the NGOs’ office and read
violence witnessed in Italy between the out a “manifesto” about the migration
late 1960s and the mid-1980s, recent crisis, defined as an “invasion” of Italy
events claimed by right and left-wing (and Europe). A video of the event
extremist groups do reflect a worrying caused a storm of indignation by both
trend that holds significant parallels local and national political leaders,
across Europe and indeed the world. some of which, including the ruling
IAI COMMENTARIES 17 | 34 - DECEMBER 2017
centre-left Democratic Party, organized
The Italian Parliament is presently an anti-fascist citizen march in the city.
debating the approval of a draft law
on the prevention of radicalization, On 6 December, two days before the anti-
an opportunity to develop common fascist march in Como, a small group
norms to combat extremism and of activists tied to the Italian far-right
radicalization across political or political party Forza Nuova organized
ideological alignments. Yet, it appears a blitz at the Roman headquarters of
this opportunity may be missed, as the
draft law in its current form places an 1
Jessica Phelan, “Video: Italian Neo-Nazis
exclusive focus on the threat of jihadist
Interrupt Voluneers’ Meeting to Bemoan Migrant
extremism over that of any other ‘Invasion’”, in The Local, 29 November 2017,
movement or manifestation. https://www.thelocal.it/20171129/video-italian-
neo-nazis-como.
Francesca Capano is a consultant in Home Affairs and a PhD candidate in Criminology at
the Vrije Universiteit Brussel (VUB). Her work focuses on the prevention of radicalization,
in particular in prison and probation settings.
1Italy’s Draft Law on the Prevention of Radicalization: A Missed Opportunity?
the Italian newspaper La Repubblica.2 leaflets in the same location.5 When
Dressed in black, the demonstrators the latter confronted representatives
had their faces covered and used smoke of Forza Nuova by creating a human
bombs, in what was billed as an act of shield in front of the stand, clashes
intimidation against the whole editorial broke out as the right-wing activists
group L’Espresso. As later confirmed tried to disperse the crowd.
© 2017 IAI
by the leader of the political party, the
raid was described as the “first act of Three episodes in ten days make
a political war against the Espresso it clear that far-right extremism in
Group and the Democratic Party”.3 The Italy cannot be underestimated.
editorial group is in particular accused However, tensions are simmering at
of favouring increased protection for both ends of the political spectrum.
migrants arriving in Italy, as well as of For example, in the early hours of the
ISSN 2532-6570
supporting a now defunct legislation – morning on 7 December an improvised
the Ius soli law – that was supposed to device exploded at the entrance of
grant citizenship rights to the children an Italian police station in a central
of regular immigrants who have spent neighbourhood of Rome, causing no
at least five years in the Italian school injuries. An Italian anarchist group later
system.4 claimed responsibility, motivating the
action as the start of “an international
Two days later, on 8 December, campaign to attack the men, structures
clashes broke out between activists and tools of repression” and in particular
linked to Forza Nuova and members “law enforcement agencies” accused
of the Italian trade union, the General of being the primary “guardians” of
Confederation of Labour (CGIL) in the “capitalism”.6
Italian town of Forlì. As reported by the
Italian newspaper Corriere della Sera, The fact that polarization is mounting
Forza Nuova had a stand at the town’s within Italian society, like in the rest of
IAI COMMENTARIES 17 | 34 - DECEMBER 2017
Christmas market, gathering signatures Europe, is not a novelty. The situation
against immigration policies, while has been aggravated in the last couple
representatives CGIL were distributing of years, mainly due to the conjunction
of lukewarm economic growth,
2 heightened migrant arrivals and recent
Jessica Phelan, “Italian Newspaper Offices
Blockaded by Far-Right Forza Nuova Party”, terrorist attacks on European soil.
in The Local, 7 December 2017, https://
www.thelocal.it/20171207/italy-newspaper- 5
“A Forlì scontri tra Forza Nuova e sinistra:
repubblica-espresso-forza-nuova. ferito un sindacalista”, in Corriere della Sera,
3
“Blitz fascista sotto Repubblica. Militanti di 8 December 2017, http://www.corriere.it/
Forza Nuova a volto coperto lanciano fumogeni. cronache/17_dicembre _08/a-forli-scontri-
‘Solo il primo attacco’. Minniti nella sede del for za-nuov a-sin i stra-fer ito-sind acali st a-
giornale”, in La Repubblica, 6 December 2017, 8f0ed00c-dc56-11e7-96bf-2722fd237ccc.shtml.
http://www.repubblica.it/politica/2017/12/06/ 6
“Roma, gli anarchici del Fai rivendicano
news/forza _nuova _mascherati_fumogeni_ bomba esplosa davanti caserma carabinieri
intimidazione_repubblica-183252738. a San Giovanni”, in La Repubblica, 7
4
“Ius Soli, Vitalizi Bills ‘Sunk’”, in ANSA, 20 December 2017, http://roma.repubblica.it/
December 2017, http://www.ansa.it/english/news/ c ron ac a /2 017/1 2 /07/ne w s/rom a _ b omb a _
business/2017/12/20/ius-soli-vitalizi-bills-sunk- esplode _ davanti _ ca ser m a _ carabinier i _
4_15626d80-7f65-443c-9f9f-17f8ae1009b3.html. nessun_ferito-183339850.
2Italy’s Draft Law on the Prevention of Radicalization: A Missed Opportunity?
Inspired by the German movie and of organized structures behind these
book (Er ist wieder da, in English Look incidents: individuals and small groups
Who’s Back), I have already addressed mainly carry out attacks, and many
the issue of polarizing attitudes in perpetrators remain unknown. Thus,
our societies: ideas cannot be killed.7 these incidents do not qualify as violent
Therefore, it is extremely important extremism or terrorism and are not
© 2017 IAI
that we never let down our guard to any reported by member states as such,9 a
form of political or ideological violence. reporting dynamic that in itself should
be reviewed by member states.
The 2017 Europol Terrorism Situation
and Trend Report warns against the Despite worrisome signs, Italy seems
rise of right and left wing extremism to be focussing its preventive efforts
in Europe.8 While right-wing extremist entirely on religiously inspired
ISSN 2532-6570
acts mainly target refugees, ethnic radicalization. While a draft law to
minorities and politicians, left-wing criminalize acts of fascist propaganda
and anarchist groups are known to has been approved by the Lower
target government property and law House of the Italian Parliament,10
enforcement agencies. According “criminalization” is a reactive
to Europol, there have been 27 left- prescription. Instead, Italy should make
wing and anarchist attacks in 2016, an the most of this opportunity to enact
increase from the 13 incidents reported proactive legislation, one that is capable
in 2015. Despite having reported only of increasing preventive capabilities
one right-wing attack that can be while also sending an important
classified as terrorism in 2016, 12 arrests message to society: radicalization,
related to right-wing terrorism were extremism and the use of violence
reported in total in the Netherlands, knows no ideological, political and
Germany and Poland. religious boundaries.
IAI COMMENTARIES 17 | 34 - DECEMBER 2017
According to Europol, member states As of late December 2017, the Upper
believe there is no indication of a House of the Italian Parliament, is
propensity by these groups to adopt discussing the country’s first draft law
terrorist methodologies, consequently on the prevention of radicalization,
leading them to consider the threat
posed by right-wing groups as low. The 9
For more on right-wing extremism, including
discrepancy between increased crimes the lack of a clear definition of the phenomenon,
against refugees, migrants, minorities see, Sophie Gaston, “Far-Right Extremism in the
and politicians and the low threat Populist Age”, in DEMOS Briefing Papers, June
2017, https://www.demos.co.uk/?p=3581.
perceptions reported by member states 10
Crispian Balmer, “Italian Parliament Votes
is explained by Europol with the lack to Toughen Laws against Fascist Propaganda”,
in Reuters, 12 September 2017, https://reut.
rs/2xiEiQ6. The draft law currently awaits final
7
Francesca Capano, “Un viaggio circolare per la approval from the Upper House. See Draft Law
storia?”, in La chiave di Sophia, 18 February 2017, No. 2900: Introduzione del reato di propaganda
http://www.lachiavedisophia.com/?p=12505. del regime fascista e nazifascista (Introduction of
8
Europol, Terrorism Situation and Trend Report the Fascist and Nazi-Fascist Propaganda Crime),
2017, June 2017, https://www.europol.europa. ht t p://w w w. s en ato. it / le g/17/ B G T/S c he de/
eu/tesat/2017. Ddliter/48275.htm.
3Italy’s Draft Law on the Prevention of Radicalization: A Missed Opportunity?
approved by the Lower House back that many scholars consider paramount
in July.11 While there is no certainty in the prevention of radicalization.
that the law will be approved, the
legislation foresees the establishment Key elements for the development of
of a National Centre on Radicalization a successful prevention strategy are
and a number of regional coordination therefore present in the law: education,
© 2017 IAI
centres. The National Centre is tasked social work, employment, health
with the development of the annual and social care, disengagement and
strategic plan for the prevention of rehabilitation programmes, training for
radicalization and for the rehabilitation staff, countering of extremist narratives
of already radicalized individuals, while on social media and interreligious
the regional centres will be responsible dialogue. However, there is one caveat:
for implementation at the local level. the word “jihadist” accompanies the
ISSN 2532-6570
The National Centre is also required word “radicalization” in the whole text.
to assist the Ministry of Justice in the Art 1. paragraph 2 limits the scope of
development of prison interventions action and defines radicalization as
aiming at the disengagement and “the phenomenon of those persons
rehabilitation of radicalized prisoners. who, even without any stable link with
terrorist groups, uphold ideologies
The draft law recognizes the of jihadist origin, inspired by the use
importance of specialist training for of violence and terrorism, even by
police and military forces, penitentiary Internet and social media”.12
administration staff and ombudsman,
teachers and directors of schools and Therefore, the draft law is specifically
universities and social and health tailored towards the prevention of
care workers. It also requires the radicalization and violent extremism
institution of university and post- of jihadist origin. If the law passes and
university education, specifically enters into force, it will ensure the
IAI COMMENTARIES 17 | 34 - DECEMBER 2017
dedicated to practitioners specialized implementation of a national structure
in the prevention of radicalization, that could be useful to prevent any
inter-religious dialogue and economic type of radicalization and violent
and intercultural relations with third extremism, but will be limited by law to
countries of emigration. Training and act only in cases of radicalized jihadist
education, as well as de-radicalization extremism. Such an eventuality would
programmes, will need to be developed represent a missed opportunity, both
coherently with the national plan in terms of improving prevention and
developed by the National Centre, to law enforcement effectiveness and as
ensure inter-agency dialogue, thus a more general antidote to growing
reflecting the multi-agency approach instances of political and ideological
radicalization within Italian and
11
European society.
Draft Law No. 2883: Misure per la prevenzione
della radicalizzazione e dell’estremismo violento
di matrice jihadista (Measures for the Prevention 22 December 2017
of Jihadist Radicalization and Violent
Extremism), http://www.senato.it/leg/17/BGT/
12
Schede/Ddliter/48213.htm. Ibid.
4Italy’s Draft Law on the Prevention of Radicalization: A Missed Opportunity?
Istituto Affari Internazionali (IAI)
Founded by Altiero Spinelli in 1965, IAI does research in the fields of foreign policy, political
economy and international security. A non-profit organisation, the IAI aims to further and
disseminate knowledge through research studies, conferences and publications. To that
end, it cooperates with other research institutes, universities and foundations in Italy and
© 2017 IAI
abroad and is a member of various international networks. More specifically, the main
research sectors are: European institutions and policies; Italian foreign policy; trends
in the global economy and internationalisation processes in Italy; the Mediterranean
and the Middle East; defence economy and policy; and transatlantic relations. The IAI
publishes an English-language quarterly (The International Spectator), an online webzine
(Affarinternazionali), two series of research papers (Quaderni IAI and IAI Research Papers)
and other papers’ series related to IAI research projects (Documenti IAI, IAI Working Papers,
ISSN 2532-6570
etc.).
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