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News & Events Event Reports

MENA Regional Hub: Enhancing Whole-of-Society Prevention Efforts in Tunisia — The Role of Local Governments in Preventing and Countering Violent Extremism 

Publication Date:
19/11/2024
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City-Led PreventionMENA Regional HubTunis

Summary

On 10 — 11 September 2024, in Tunis, Tunisia, the Strong Cities Network MENA Regional Hub, in partnership with Tunisia’s National Counter-Terrorism Commission (CNLCT), convened a two-day workshop to discuss the role of Tunisian cities in preventing and responding to hate, violent extremism and polarisation, as well as to support the CNLCTs efforts to strengthen local authorities’ capacity to implement the recently updated National Strategy for Countering Violent Extremism 2023 — 2027 (National Strategy). Sponsored by the EU (as part of its STRIVE Cities initiative) the workshop brought together over 60 participants, including representatives from Tunisian municipalities and governorates, national ministries, CNLCT’s focal points from different governorates, as well as representatives from international partners and international and local civil society organisations (CSOs).

In her opening remarks, Neila Feki, President of the National Counter-Terrorism Commission, emphasised the critical role of local authorities in prevention efforts and the importance of a whole-of-society approach to preventing violent extremism (PVE). She welcomed Strong Cities efforts to support the CNLCT in the localisation of the updated National Strategy. Pascale Gallien, Advisor at the Delegation of the European Union to Tunisia, highlighted the EU’s commitment to supporting local prevention programmes in Tunisia, and Zouhair Racheha, Head of Strong Cities MENA Regional Hub discussed the Hub’s support to city-led efforts in the region to address hate, violent extremism and polarisation, including by connecting cities with regional and global good practices.

Participants discussed challenges facing Tunisian cities in addressing violent extremism and related threats. These include the lack of effective coordination and information sharing between national and local actors, as well as among the local stakeholders (with participants then sharing potential digital solutions to enhance coordination), the importance of contextualising national prevention strategies for local implementation and the critical role of city-led engagement with young people as part of a holistic approach to prevention. Participants also pointed to different components of a whole-of-city approach to prevention, with city representatives sharing examples of approaches in their city. The components highlighted include economic empowerment and job skills training initiatives to help address the drivers of radicalisation to violence and reduce vulnerabilities to hateful and violent extremist narratives, particularly among the youth; involving faith leaders to address issues affecting young people today; and mental health support programmes, which were highlighted as an important (but often overlooked) component of prevention strategies. In that regard, the Municipality of Sfax proposed including mental-health counsellors in the design of the city-led prevention initiatives, a suggestion that resonated with other cities and CSOs.

The workshop also featured representatives from Strong Cities member cities in Jordan and Iraq sharing case studies on cooperation between local government and non-governmental actors in building inclusive and effective prevention frameworks that leverage local knowledge and resources. These presentations provided the Tunisian local government representatives with practical insights on how to develop dynamic local government-led preventing and countering violent extremism (P/CVE) networks in Tunisia. Mr. Ali Abdullah, President of the Iraqi National Committee for Countering Violent Extremism (NCCVE) shared the experience and learnings of the Iraq national government’s efforts in facilitating the localisation of the country’s National Strategy for Countering Violent Extremism.

Overall, the workshop represented a unique opportunity for representatives from municipalities and the national government in Tunisia to discuss the localisation of the revised Tunisian National Strategy and, more broadly, for municipalities to share their experiences and good practices in prevention, fostering new connections among local authorities and between national and local level stakeholders.

Key Takeaways

  1. Municipalities and governorates in Tunisia have an important, but often untapped, role to play in P/CVE and prevention more broadly. By integrating prevention into an existing mandate and leveraging existing resources and expertise to deliver prevention programmes, local authorities can start to overcome one of the barriers to their involvement in this work: the lack of dedicated resources for prevention from the central government.
  2. The updated National Strategy presents an opportunity to engage cities and local authorities in the localisation of the framework and to ensure that local actors are sufficiently empowered and adequately supported to contribute to its implementation.
  3. There is a growing recognition of the need for enhanced cooperation between different levels of government on P/CVE and prevention more broadly. Clarifying roles and mandates among different national and local stakeholders, including local government, would significantly improve local response capabilities.
  4. Local government-led engagement with young people is an important component of effective prevention strategies. Cities are increasingly focusing on providing opportunities for young people through various initiatives, such as youth forums, youth councils, skill-building and economic empowerment programmes. These efforts recognise that youth engagement and empowerment are crucial for building community resilience and can help address feelings of exclusion, which can serve as a driver of violent extremism.
  5. Identifying existing local government and non-governmental structures and programmes that are impacting communities positively is critical for building a whole-of-city approach to prevention. Civil society, in particular, plays a crucial role in Tunisia in the prevention of hate, extremism and polarisation and represents a valuable partner for local governments as they work on the prevention of violent extremism.
  6. Local governments would benefit from capacity-building and other support to enhance their ability to respond to crises effectively, including through strategic communication. Effective communication strategies can help cities build trust with local communities, which is foundational for successful response efforts.

Threats, Challenges and City Needs

Participants highlighted that, while in recent years, Tunisia has largely avoided terrorist attacks, the threat of violent extremism, particularly spread online, remains ongoing. Discussions highlighted a number of factors contributing to vulnerabilities to this threat. These include limited job opportunities and stark economic inequalities between urban and rural areas and lack of inclusion of youth and minorities in government decision-making processes, which can make these groups feel marginalised and vulnerable.

Participants shared how, many municipalities lack the resources to effectively engage in prevention efforts, leaving gaps in their ability to detect and respond to violent extremist influences and narratives. They also highlighted how rapid urbanisation and population growth due to internal migration are putting strains on local infrastructure and services, which in turn can lead to feelings of exclusion and marginalisation by affected communities.

The ensuing discussions surfaced several steps that could be taken to help address the above-mentioned challenges. For example, participants 1) encouraged local governments to develop youth engagement frameworks, as well as inclusive public spaces, as essential hubs for fostering dialogue, tolerance and social cohesion, as well as capacity building, noting how such spaces provide valuable opportunities for youth engagement and positive community involvement; 2) called for capacity-building initiatives to enhance local authorities’ ability to govern effectively and deliver effective prevention programmes; 3) emphasised the need for additional resources to address infrastructure gaps, support civic engagement and fund programmes that benefit vulnerable groups; 4) stressed the need for municipalities to develop crisis management strategies to handle natural disasters, security threats and public health emergencies, emphasising how strengthening the capacity of local governments to respond to these challenges will be key to building resilient, inclusive and thriving communities.

Key Themes

1. Role of Local Government in Addressing Online Harms

Participants emphasised the critical importance of effective collaboration between national and local authorities in preventing violent extremism. While Tunisia’s National Strategy provides a useful framework for cooperation, local authorities expressed the need for additional support to implement it at the municipal level. Many participants highlighted the lack of effective information-sharing mechanisms between local authorities, governorates and national institutions as a significant challenge to coordinating P/CVE efforts.

Participants agreed on the need to include local governments in PVE cooperation efforts in the country, particularly given how local authorities often lack the necessary resources and expertise to act on their own. Participants acknowledged that even when adequately capacitated, cities, whether in Tunisia or elsewhere, need to build partnerships with CSOs rather than view them as competitors. Successful examples of where local governments leveraged the expertise and community connections of CSOs to enhance the effectiveness and reach of city-led PVE initiatives were highlighted. For example, the City of Sousse spoke about its collaboration with the We Love Sousse Association on local youth councils in the city. The governorate of Jendouba shared how they are, in collaboration with the El Jahedh Forum’s Network of Religious Leaders for PVE, engaging youth at risk of radicalisation and religious leaders in PVE training initiatives and dialogue sessions.

For an effective contribution of local governments in the prevention pillar of the revised national strategy to counter violent extremism and terrorism, we have the existing mechanisms, networks and partnerships. What is required is concerted efforts and increased coordination, communication and trust at the local – local and national – local levels

Adnen Sassi, Head of Service International Cooperation, Municipality of Sousse (Tunisia)

Participants emphasised the potential of various network structures in the country to help enhance the involvement of local governments in PVE cooperation efforts in Tunisia. These include the National Federation of Tunisian Municipalities (FNCT),  the Tunisia Organisation for Social Cohesion, as well as community resilience committees that involve youth and local actors in policy development and implementation. These platforms were seen as crucial in facilitating the exchange of good practices and improving communication among cities and between them and national authorities and in fostering engagement with local communities.   

For example, the creation of community resilience committees in nine cities was highlighted as a successful initiative. These committees, comprising youth and other local actors, collect ideas from members of the community for adapting national policies to the local context and have developed social commitment plans to address priority local issues.


CNLCT Network of Regional Focal Points

  • Challenge: Tunisia has faced complex challenges related to violent extremism. Progress has been made in security and military operations. However, a more comprehensive approach, including early detection and prevention at the local level, is needed. Local governments have an important role to play here, but they often lack the structured support or access to coordination platforms that are needed for them to unleash their PVE potential.

  • Approach: In response, in 2019, the CLNCT established a Network of Regional Focal Points within each governor’s office across Tunisia’s 24 governorates to strengthen national-local cooperation for PVE. The focal points were mandated to be the main point for coordination between local stakeholders and the national committee. These focal points were given training on PVE and were given responsibility for coordinating the implementation of the National Strategy at the regional level, with a goal of ensuring alignment between local initiatives and the national framework.

  • Impact: According to Saida Ben Rouha, the Focal Point for Tunis, the focal points have played a key role in facilitating communication and coordination between local institutions, ensuring that local challenges related to violent extremism are addressed within the national framework. The network has enabled local authorities to support vulnerable communities more effectively by connecting them with resources for social and economic empowerment, thereby reducing the underlying drivers of extremism. Focal points have also worked closely with civil society to foster trust, engage marginalised communities, and implement preventive measures, contributing to a decrease in vulnerabilities to violent extremism across Tunisia.

2. Strengthening Social Cohesion and Resilience: The Role of Local Authorities in Building Community Trust and Partnerships

Throughout the workshop, participants emphasised the importance of building trust between communities and local authorities. They underscored how this is fundamental to creating resilient communities and mitigating the spread of violent extremism and hate-motivated violence. This trust-building process, cities noted, is particularly crucial in marginalised areas where there may be a history of disengagement from local institutions or mistrust due to historic, systemic neglect. Discussions highlighted that addressing the drivers of marginalisation is central to establishing trust.

Participants pointed to how transparent decision-making processes, regular community consultations and more responsive local government services, particularly when targeting marginalised young people, can contribute to rebuilding trust.

Municipalities of Kasserine, Ben Guerdane, M’saken and El Kef explained how local youth councils and youth houses within their municipalities, not only empower young people but also cultivate a deeper sense of ownership and responsibility for what is happening within their communities. By giving youth a voice in governance, these councils can help bridge the gap between local authorities and the community. [Note: Tunisia maintains a network of 354 youth houses spread across its 24 governorates, which are currently being revived to better serve the needs of young people. End Note]. The Municipalities of Sfax and Bir Lahmar shared how they are reclaiming public spaces like squares and gardens, transforming them into areas that appeal to local communities and serve as venues for diverse community engagement activities.

Speaking of prevention of violent extremism, youth engagement and vulnerabilities to radicalisation we should not forget mental health and the need to integrate psychosocial support through professional expertise and interventions at all levels

City Official, City of Sfax (Tunisia)

Additionally, participants underscored the necessity of improving the provision of social services, including mental health support, to all residents and, more fundamentally, strengthening local governance structures given that disparities in service provision, especially in underdeveloped urban neighbourhoods and rural areas, can exacerbate feelings of exclusion and marginalisation. By addressing these inequalities and ensuring that all communities have access to quality services, local governments can better contribute to building resilient cities and communities.


Municipality of Jendouba (Tunisia)

Jendouba, located in northwestern Tunisia, is a predominantly rural municipality that has sturggeled with limited economic opportunities for youth and high unemployment levels. The region’s proximity to Algeria and its history of security challenges further contribute to its vulnerability to extremist narratives and recruitment.

  • Challenge: The Municipality faced the challenge with “at-risk” young people who were disengaging from civic life and society, withdrawing from educational institutions, community initiatives and generally feeling marginalised and abandoned by the municipality. This increased their risks of social isolation, vulnerability to violent extremist narratives and involvement in criminal activities.

  • Approach: The Municipality sought to create a more inclusive environment where youth could share their concerns with the local government and access guidance by trained youth mentors, helping to foster trust and cooperation between the community and local authorities. This was essential in supporting early prevention efforts and enhancing resilience against the risk of radicalisation to violence or involvement in crime or other illegal activities.

    The Jendouba Model represents an example of local implementation of Tunisia’s broader community policing initiative supported by UNDP. This pilot project actively engages multiple levels of local governance, from regional authorities to municipal councils, in fostering trust between citizens and security forces while addressing local safety concerns. This nationwide initiative, ongoing since 2015, aims to transform the police force into a public service-oriented entity that respects individual and collective rights. It involves the phased deployment of Community-Based Policing across the country, establishing Local Security Committees that bring together internal security forces, CSOs, local authorities and citizens. These committees proactively identify and address a wide range of security challenges at the community level. The project also incorporates a gender-sensitive and human rights-based approach, ensuring the inclusion of women and young people in LSCs and promoting respect for individual rights in all policing activities.

    Within this context, the Jendouba Model aimed to: 1) engage at-risk youth through dialogue sessions; 2) train youth mentors to maintain connections between youth and local authorities; 3) integrate community policing principles to enhance engagement between security services and the public; and 4) create and support Local Security Committees to address community-level security challenges.

    The programme also successfully operationalised a CVE referral mechanism that brought together 11 departments in coordinated action, with Stakeholder Liaison Officer representing the Youth Mentor Teams (YMTs). These departments included: the Jendouba Governor, security services, CNLCT regional focal points within the governor’s office, regional ministries of education, health, employment, social affairs, youth, culture, women and children, and the Jendouba Municipality.

  • Impact: The Jendouba Model has had a significant and lasting impact on the relationship among local authorities, community actors and vulnerable groups, fostering a culture of cooperation and trust that is essential for effective PVE.

    1. Increased Trust Between Community and Authorities: The programme led to improved relationships between local authorities, particularly the National Police and the broader community. By integrating community policing principles, local security services enhanced their engagement with the public, particularly at-risk youth, which significantly reduced tensions and built mutual trust – a key factor in the early identification and prevention of violent extremism.

    2. Strengthened Community Participation in Prevention: Community members, particularly parents, became actively involved in the referral process, with three referrals during the programme coming from parents. This direct engagement showcases how the community was empowered to identify and support vulnerable individuals, illustrating that PVE efforts thrive when communities are at the forefront of early interventions.

    3. Enhanced Multi-Agency Cooperation: The Jendouba Model established a multi-agency intervention framework that brought together regional ministries, local authorities, the National Police, National Guard, and Youth Mentor Teams (YMT). This collective effort created a coordinated response to violent extremism risks, enhancing local safeguarding capacities.

    4. Support for At-Risk Youth and Preventive Interventions: The initiative demonstrated the effectiveness of a preventative approach, as two at-risk youth were successfully diverted from joining violent extremist groups. These individuals, instead, re-entered higher education and joined employment programmes, showcasing how local authorities, in partnership with YMTs, provided alternative pathways to vulnerable youth.

    5. Improved Collaboration and Public Satisfaction: Public satisfaction with security services increased, as 95% of National Guard and National Police officers reported improved relationships and public safety outcomes. Additionally, 64% of direct beneficiaries, including Youth Mentors and local officials, expressed improved satisfaction with the responsiveness of local security actors. This improvement in perceptions of security services contributed to building the community’s resilience against violent extremism.

3. Urban Planning for Resilience: City-Led Efforts to Revitalise Public Spaces and Empower Communities

Participants discuss how urban planning and the effective use of public spaces by local governments are integral to promoting inclusivity and reducing vulnerabilities that may lead to violent extremism. This involves not only reclaiming and revitalising public spaces but also ensuring that these areas are designed to promote community cohesion, encourage positive social interactions and serve as hubs for educational, economic and skills development. For example, the Municipalities of Sfax and Bir Lahmar shared how they are reclaiming public spaces, once home to informal markets or neglected gardens, and transforming them into areas for cultural and educational activities, helping to reduce illegal or disruptive behaviour while fostering community engagement through arts, educational activities and social events.

Discussions further highlighted the role that urban planning can play in addressing inequalities within cities, particularly by creating opportunities for marginalised communities. By improving infrastructure, services and accessibility in disadvantaged neighbourhoods, local authorities can help reduce factors contributing to radicalisation, such as poverty and social exclusion.

Participants also mentioned the creation of “safe spaces” for young people that serve as hubs for educational programs and community-building initiatives that can provide alternatives to violent extremist or other malign influences. For example, 13 of the 15 governorates in Tunisia have started building youth houses, cultural centres and other “safe spaces”  – some 55 in total. For example, the Nasrallah Youth Centre in Kairouan Governorate has implemented activities to encourage girls’ participation in community, as well as activities targeting young people who dropped out of school. The young people were introduced to skill-building workshops that range from vocational training and technical skills to soft skills, such as leadership, teamwork and communication. In other governorates, the spaces were designed to foster critical thinking by encouraging youth to analyse problems, think creatively and develop community initiatives. In some instances, arts and cultural programmes are a key component, providing a platform for creativity and self-expression.


Youth House of Hammam-Lif

Hammam-Lif, a northern suburb of Tunis, has transformed its outdated Youth House into a vibrant centre for youth development.

  • Challenge: Hammam-Lif faces economic and social marginalisation, with high rates of crime and delinquency among youth aged 16-30. The area’s past involvement with violent extremism, particularly before 2011, has heightened concerns about youth vulnerability to extremist influences.

  • Approach: The Municipality of Hammam-Lif implemented a strategic approach to address these challenges:

    1. Participatory Management: Following the 2011 revolution, the Youth House adopted a more inclusive, youth-driven approach, allowing young people to play a significant role in running the Youth House and designing the programmes.

    2. Diverse Programming: The Youth House offers a wide range of activities including life skills workshops, artistic expression classes, vocational training and leadership programmes, all designed by young people.

    3. Focus on Risk Prevention: Programmes are designed to address risky behaviours and provide alternatives to crime, delinquency and extremism.

    4. Civic Engagement: In the absence of municipal councils, the Youth House has taken on a role in enabling youth participation in local governance and decision-making processes.

    5. Gender Inclusion: Active efforts are made to increase female participation, addressing the national gender disparity in youth house attendance.

  • Impact:

    1. The Youth House’s approach has yielded significant positive outcomes:

    2. Decreased delinquency and violent behaviour among local youth.

    3. Enhanced critical thinking, creativity and personal responsibility among participants.

    4. Stronger sense of citizenship and belonging among local youth.

    5. Improved community resilience and youth empowerment.

    The Youth House is participating in the Government’s “Second Generation” initiative, which aims to renovate and modernise youth houses nationwide, improving their ability to meet contemporary youth needs. Hammam-Lif Youth House is positioned to play a crucial role in piloting new approaches to youth civic participation, potentially informing national strategies for youth involvement in decision-making processes.

    This success in implementing a participatory, youth-driven approach offers valuable lessons for other youth houses across Tunisia, especially in the context of evolving local governance structures and the need for enhanced youth participation in decision-making processes.

Next Steps

Strong Cities’ first workshop in Tunisia highlighted several practical recommendations for enhancing the role of Tunisian cities in contributing to the implementation of the National Strategy and in PVE more broadly:

The Strong Cities Network’s MENA Regional Hub will continue to work with Tunisian cities and municipalities and national actors, as well as civil society and international partners, to support the implementation of the Tunisian National Strategy and these recommendations. This will include providing opportunities for city-to-city learning, offering expert support, and utilizing Strong Cities’ resources such as the Guide for City-Led Response and Guide for Cities to help translate these recommendations into concrete actions.

In addition, through its Technical Support Fund, MENA Regional Hub will support the efforts of a number of Tunisian municipalities to build out their prevention and response capabilities and interventions, working on addressing some of the recommendations listed above.

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