January 24, 2025 - 11:50am

The UK Government’s Prevent programme has once again come under scrutiny following the revelation that Southport murderer Axel Rudakubana had been referred to the anti-terrorism programme on three separate occasions, with no action being taken. Prime Minister Keir Starmer warned this week of the threat from “loners and misfits” who are “fixated on violence for its own sake”, and declared that “terrorism has changed.” A number of experts have disagreed, though, arguing that this threat has in fact been growing for years, all while warnings fell on deaf ears.

Sky News’s analysis, for example, used the annual Prevent statistics to show how referrals for two categories — “Vulnerability, but no ideology or CT [counterterrorism] risk” and “High CT risk but no ideology” — have eclipsed even those referred for far-Right or Islamist radicalisation concerns. There may be growing numbers of possibly violent individuals with no clear ideological bent, but this case is not made by Prevent referral figures, which do not accurately reflect the terror threat picture in Britain.

One example of this shortcoming concerns Islamism, which while accounting for the vast majority of live terror investigations is submerged by the far-Right and other categories when it comes to Prevent referrals. This mismatch was highlighted in the 2023 review of Prevent led by William Shawcross, which was heavily criticised by Left-wing academics and think thanks under the auspices that the threat has moved on from jihadists and now mainly comes from the far-Right. Shawcross’s conclusion, though, was backed up this week by Labour Home Secretary Yvette Cooper, who announced a review of referral thresholds and asserted that referrals for Islamism were “too low”.

Whereas Counter-Terrorism Policing or MI5 may only intervene according to clear legal thresholds, Prevent referrals are skewed by a number of external factors. They trend young compared to actual terror arrests because schools are the main delivery mechanism, while the mainly Left-leaning education sector is more sensitive to concerns about far-Right radicalisation. At the same time, there are greater incentives within the extremism sector to push the threat posed by Andrew Tate than that posed by Islamists. This creates a feedback loop in which increased training and awareness encourages an uptick in referrals, which is then used as evidence of the mounting threat posed by the thing everyone has been excitedly warning about already.

It’s therefore possible that overall referrals to Prevent are too high, rather than referrals for Islamism being too low. Perhaps safeguarding professionals are simply not encountering as many individuals deemed at risk of becoming jihadists. While the threat has far from evaporated, Isis is no longer calling on Muslims everywhere to make Hijrah (migrate) to their genocidal “caliphate” in the Middle East, and its capacity to inspire acts of terror in Britain is presently more limited to the loners and misfits cited by Starmer.

Simultaneously, there are more cases of violence which don’t resemble the traditional tactics of al-Qaeda or Isis, but instead individuals taking it into their own hands to attack the West for its support of Israel, or to avenge against perceived acts of blasphemy. Given that many of these attackers did not appear steeped in Salafi-jihadist ideology or propaganda, it’s unlikely they would’ve come onto Prevent’s radar, or that the programme would’ve known what to do with them if they had. It’s even possible that some of those referrals going into the “unclear” buckets concern people who inhabit this sub-jihadist but nonetheless Islamist universe, as their ideological make-up confounds existing lenses.

Prevent’s algorithms are attuned to black flags and beheading videos yet, as Isis and al-Qaeda’s relevance wanes, there is growing evidence for a pool of potentially violent individuals no longer acting in allegiance to Abu Bakr al-Baghdadi or Osama Bin Laden, but instead out of a perceived irreconcilable moral clash between themselves and the world around them. Out of all the factors converging to explain the drop-off in Islamist referrals, this is the most urgent for both Prevent and the security services to address.


Liam Duffy is a researcher, speaker and trainer in counter-terrorism based in London.

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