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MENA Regional Hub: Unleashing the Potential of Moroccan Cities in Supporting a Whole-of-Society Approach to Rehabilitation and Reintegration 

Publication Date:

12/06/2025

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Event Reports

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City-Led ActionMENA Regional HubRehabilitation and ReintegrationSTRIVE CitiesTangierwhole-of-society approach

Summary

On 12 — 13 June 2025, the Strong Cities Network’s Middle East and North Africa (MENA) Regional Hub, in partnership with the City of Tangier, (Morocco), hosted a two-day workshop focused on the role of Moroccan local governments in a whole-of-society approach to the rehabilitation and reintegration (R&R) of returnees from detention camps in northeast Syria and former terrorist offenders into local communities. The workshop convened mayors, local leaders, national stakeholders, city-level officials and practitioners from across Morocco, as well as practitioners from other Strong Cities member cities with experience in R&R. 

Supported by the EU STRIVE Cities initiative, the event provided a unique platform for participants to exchange insights, share lessons learned and identify promising practices related to the role that local governments can play in R&R in Morocco. 

In his opening remarks, Mr. Mounir Lymouri, Mayor of Tangier (Morocco), underscored the importance of effective R&R. He highlighted the recent signing of a Memorandum of Understanding between the City of Tangier and the Mohammed VI Foundation for the Reintegration of Prisoners, along with several other partnerships his City has with civil society organisations (CSOs). 

Mr. Antonio Casado Ortega, Security and Counter-Terrorism Counsellor at the EU Delegation in Morocco, emphasised the urgency of effective and sustainable R&R, particularly given the evolving context in Syria and the continued presence of thousands in detention camps. He also noted the strong EU-Morocco cooperation on security matters and highlighted the vital role of the Strong Cities Network as a platform for experience-sharing, capacity-building and the co-creation of innovative approaches to address violent extremism and hate speech. 

Mr. Zouhair Racheha, Head of the Strong Cities MENA Regional Hub, expressed that this workshop marks an important step toward bridging the gap between national policies and local realities. He underscored the need for frank and practical dialogue on how Moroccan cities can serve not only as implementers but as strategic partners in developing and delivering reintegration strategies that are tailored to local contexts, social challenges and opportunities on the ground. 

The Threat Landscape in Morocco 

As the global community continues to grapple with the long-term repercussions of the conflicts in Syria and Iraq, many countries, including Morocco, are now facing the complex challenge of managing the return of their nationals who had travelled to join the Islamic State (ISIS). With ongoing political shifts, particularly in Syria, there is renewed international focus on facilitating the repatriation of these individuals, prompting governments to confront a range of legal, security and social dilemmas. 

In recent weeks, Moroccan authorities initiated an administrative process requesting families to complete repatriation forms for relatives held in the Al-Hol and Al-Roj camps in northeastern Syria, facilities currently hosting approximately 8,000 individuals from 55 countries, many of them women and children affiliated with former ISIS fighters. At least 476 Moroccan nationals are believed to remain stranded in these camps, including 103 women and 285 children. 

To understand the scale and nature of the threat, Morocco established the National Observatory for Criminality under the Ministry of Justice in 2022, reflecting the country’s growing commitment to monitoring and responding to evolving criminal phenomena. Sofana Benyahya, Head of the Observatory, highlighted the shifting dynamics of terrorism in the wider region, from ideologically inspired attacks in the Middle East to increasingly targeted threats emanating from the Sahel. She emphasised that Morocco’s approach extends beyond its borders, integrating an African perspective that prioritises regional development and cross-border stability. 

A notable feature of Morocco’s R&R is the application of royal pardons, a constitutionally-grounded mechanism applied on a case-by-case basis. These pardons are supported by the Moussalaha Centre, which offers tailored ideological rehabilitation and psychosocial support. Between 2005 and June 2025, royal pardons were granted in 600 terrorism- and extremism-related cases, including 257 individuals who completed the Moussalaha programme. This reflects Morocco’s approach, which balances security imperatives with human and social dimensions. 

However, as in many countries, participants highlighted how local authorities are the ones who shoulder the practical responsibilities of reintegration, providing housing, psychosocial support, education and vocational training, while also addressing the often sceptical or resistant attitudes of local communities. Despite their critical role, the point was made that municipalities are frequently sidelined in national-level discussions around R&R. Morocco’s experience, which is reflected in many other countries as well, underscores the need for a whole-of-society approach that meaningfully engages local governments, civil society and international partners to ensure long-term, sustainable R&R outcomes. 

State of R&R in Morocco

Participants discussed the notable progress Morocco had made in developing a multi-layered institutional framework for R&R, particularly in response to the return of foreign terrorist fighters and individuals convicted under terrorism-related laws. During the workshop, participants examined both the national architecture and local-level interventions supporting R&R efforts, revealing a promising yet still evolving system that faces challenges around scale, coordination and local ownership.

The General Delegation for Prison Administration and Reintegration (DGAPR) has been at the forefront of managing returnees from conflict zones, with a particular focus on the security and ideological risks posed by violent extremism.

Since 2003, Morocco has faced the challenge of managing individuals returning from conflict zones, particularly those linked to extremist groups. A significant number of these returnees have been prosecuted and incarcerated under counterterrorism legislation. While some remain in detention, others have been released over time through judicial processes or royal pardons. According to Omar Yakhloufi, Head of Division at the DGAPR, the majority of returnees share common socio-economic characteristics. Most are young men from marginalised backgrounds, marked by limited education, unstable employment and minimal prospects for social mobility. These individuals tend to come disproportionately from specific geographic regions, notably Tangier -Tetouan- Al Hoceima and Casablanca-Settat.

Despite clear indicators of vulnerability and marginalisation, speakers shared that participation in prison-based rehabilitation remains low. Only 37% of returnees participated in rehabilitation programmes. These figures highlight both the voluntary nature of participation and the need to expand the reach and relevance of these interventions, suggesting a need for scaled-up, evidence-based rehabilitation programming that can support judicial discretion and long-term reintegration.

The Mohammed VI Foundation for the Reintegration of Prisoners, which supports both detainees and their families through legal, psychosocial and economic assistance, champions a more comprehensive and rights-based approach. Fouad Ouali, Head of Special Affairs, shared that as of 2024, more than 1,000 individuals convicted under terrorism laws had registered with reintegration centres across Morocco, including close to 100 returnees. Impressively, 91% were receiving structured follow-up support. The Foundation’s network of dedicated regional centres delivers vocational training, mental health services, employment assistance and family outreach, anchored in partnerships with government ministries, civil society and international actors.

Discussions highlighted how the Moussalaha programme, initially launched within DGAPR, has since evolved into a permanent national centre, institutionalised in 2023 through collaboration with key stakeholders including the Ministry of Economy and Finance, the Mohammadia League of Scholars (al Rabita), the National Human Rights Council and the Mohammed VI Foundation for the Reintegration of Prisoners. The Centre has emerged as a cornerstone of Morocco’s national strategy for preventing violent extremism and enjoys growing international recognition.

Khalid El Bacha, Deputy Director of the Moussalaha Centre shared that its holistic methodology is grounded in five strategic pillars:

1. Ideological and psychosocial rehabilitation within prisons to prevent radicalisation;
2. Post-release reintegration, including funding for income-generating projects and family-based support;
3. Community resilience-building, especially among youth and in digital spaces, to counter extremist narratives;
4. Research and knowledge development, with a focus on local ownership and global exchange; and
5. International cooperation through multilateral engagement, training, and study visits.

By May 2025, peer-led education initiatives had trained 244 inmates across eight institutions, indirectly reaching 6,200 prisoners, with an ambitious target of 22,000. The Centre also introduced a specialised programme for detainees under 20 and continues to invest in capacity-building for prison staff, recognising them as frontline actors in prevention and rehabilitation.

Importantly, both DGAPR and the Foundation recognise that radicalisation and incarceration impact not just individuals but their families and communities. Special attention is given to the spouses and children of detainees and returnees, who face social stigma and economic hardship. Women benefit from targeted vocational training, psychosocial support and mental health care, while children receive educational assistance and opportunities for recreation and healing. For the 2024–2025 school year, more than 360 children received school support, and summer camps were held to foster inclusion, resilience and trust.

As mentioned by Mr El Bacha, a series of diagnostic studies conducted between 2019 and 2020 helped shape a national strategic framework centred on five core areas: inter-institutional coordination, psychosocial capacity-building, economic empowerment (especially for women and youth), structured post-release support and community outreach to combat exclusion and stigma.

While these efforts reflect a strong political and institutional commitment to R&R, challenges remain, particularly in scaling up access to rehabilitation opportunities within detention, ensuring consistent follow-up post-release, and fully integrating municipalities into the broader strategy. Participants emphasised that as Morocco’s model gains international attention, its future success will depend on deepening local ownership, improving national-local coordination, and expanding inclusive, community-based pathways to reintegration.

From Policy to Practice: Advancing City-Led Engagement in R&R

To explore the practical roles municipalities can play in the R&R of returnees, particularly in service delivery, prevention, outreach and resilience-building, the workshop offered a platform to delve into local and comparative experiences from the MENA region, as well as from Canada, Germany and The Netherlands. Case studies highlighted city-level engagement, the gaps and challenges faced locally and promising practices that Moroccan municipalities could draw from in their own efforts.

Hakima Al Hatri, Deputy Mayor of the City of Fes, emphasised that R&R must be shared responsibilities across all sectors of society. She highlighted Morocco’s leading role in preventing violent extremism and counter-terrorism, noting that these efforts have produced tangible and effective outcomes. Echoing earlier speakers, she underscored the importance of prevention, the delivery of essential services and the strengthening of social cohesion. Al Hatri noted that while local leaders have clear mandates for providing infrastructure and basic services — and are well positioned to detect early signs of radicalisation due to their proximity to communities — they often lack a formal mandate to engage in R&R efforts, limiting their impact. She highlighted the priority of supporting the socio-economic reintegration of former detainees through training, empowerment and coordinated post-release care, calling for an enabling framework that empowers local governments to play an active role in these efforts.

Abderrahim Zebbakh, Advisor for International Cooperation and Communication at the City of Tangier (Morocco), shared his City’s experience in promoting reintegration. He highlighted a memorandum of understanding signed between the city and the Mohammed VI Foundation for the Reintegration of Prisoners, aimed at supporting individuals’ reintegration through a collaborative, rights-based approach. He stressed the need for comprehensive strategies rooted in cooperation, emphasising empowerment, training, job creation and access to public services and development programmes. A key objective, he noted, is to fight stigma and promote inclusion, particularly for those with a history of incarceration. The City of Tangier, he said, provides both financial and logistical support to reintegration programmes, either directly or through partnerships, and ensures beneficiaries can access municipal services. The Communal Council of Tangier coordinates closely with civil society and local actors, delivering psychosocial and cultural support through proximity-based services. A joint committee with the Foundation monitors and evaluates programme implementation. The City has also signed agreements with several civil society organisations to deliver social, educational and reintegration services for former detainees and their families, adopting a holistic, family-centred approach.

Mr. Zebbakh stressed the importance of moving from words to action, citing initiatives such as the City’s partnership with UNESCO on the Marathon of Reading, which engaged community members, including former prisoners and their families, over several days. He also referenced local forums focused on employment and social inclusion, all part of Tangier’s broader vision to become an inclusive city where every resident, regardless of background, can participate fully and without marginalisation. He concluded by emphasising the importance of cooperative, participatory approaches that bring together local government, NGOs and the private sector to make reintegration a shared responsibility and sustainable reality.

David O’Brien, Director of Yorktown Family Services in Toronto (Ontario, Canada) shared insights from Toronto, one of North America’s largest and most diverse urban centres, home to 6.4 million residents. He outlined a multifaceted approach to preventing violent extremism that includes spiritual and religious care, psychiatric and therapeutic support, community outreach and digital media literacy. On the issue of returning foreign terrorist fighters, Mr. O’Brien noted that around 200 Canadians left for Syria, Iraq and Afghanistan between 2013 and 2017, and that Canada criminalises travel for the purpose of joining terrorist organisations. He explained how intelligence services begin coordinating with city social services and families up to 18 months before a foreign fighter’s return, allowing time to build trust and prepare for reintegration. This is followed by a three-phase approach: immediate post-arrival care (1-6 weeks), addressing urgent needs such as nutrition and identity documents; stabilisation (6-16 weeks), reinforcing inclusion and basic support; and a final phase focused on long-term integration. He emphasised the role of local governments in building local capacity in healthcare, fostering critical thinking and partnering with religious leaders to prevent radicalisation at the community level.

Lisa De Haan, Senior Policy Advisor at the City of Amsterdam (The Netherlands), commended the diversity of stakeholders engaged in Morocco’s R&R efforts. She noted that Amsterdam, a highly diverse city, faces a wide range of threats from across the ideological spectrum, including right-wing, left-wing and religious extremism. She stressed the importance of learning from past experiences and cautioned against focusing exclusively on ISIS, as many threats now emerge from other extremist movements. She shared that individuals returning from conflict zones are immediately taken into custody and typically receive sentences of five to ten years. Most of these individuals are now approaching the end of their prison terms. Amsterdam operates a dedicated facility for all terrorism-related detainees, regardless of ideological affiliation. Importantly, R&R efforts begin on the first day of incarceration, ensuring that rehabilitation is integrated throughout an individual’s sentence.

Felix Baechelin, Advisor at the Senate Department for the Interior and Sport, City of Berlin (Germany) shared how Berlin launched a model project in 2019 to support the reintegration of returnees from Syria and Iraq through a coordinated, holistic approach. Mr. Baechelin stressed the critical importance of a central coordinator to manage communication among diverse stakeholders, including law enforcement, civil society, local communities, public institutions and mental health services. Reintegration is structured into three phases: preparation, repatriation and reintegration. He acknowledged the complexity of these efforts, recognising that radicalisation is often rooted in deeply personal and difficult experiences. Key challenges include management of conflict situations, the use of sensitive language and data protection. As a good practice, Mr. Baechelin underscored the need to work not only with returnees themselves but also with their families and wider social networks, in order to strengthen resilience and foster sustainable reintegration. These insights are further elaborated in the Strong Cities Network’s policy brief, Rehabilitation and Reintegration of Returnees from Syria and Iraq: Ten Lessons from the Berlin Experience for Local Governments, which outlines concrete recommendations for municipalities engaging in R&R efforts.

Mr. Ali Omer Al Khalaf, Deputy Governor of Nineveh Governorate (Iraq), described city-level engagement in R&R efforts in this governorate. This involves cooperation with a wide range of stakeholders, including national government, schools, health facilities, law enforcement and civil society. He shared that Nineveh has facilitated direct discussions with offenders to understand their grievances and needs, helping to support their reintegration into society.

In his concluding remarks, Mustapha Merizak, Member of the National Council on Human Rights (Morocco) stressed that violent extremism and hate speech transcend geographic and economic boundaries and must be addressed through increased public awareness and coordinated action. He underscored the importance of prevention-oriented, human rights-centred approaches, noting that hate and violence often thrive in contexts marked by rights violations, hopelessness and low civic engagement. He also pointed to the digital dimension of these challenges, highlighting how online echo chambers, misinformation and disinformation fuel hate and incitement to violence. To counter these threats, he called for inclusive, participatory strategies grounded in human rights.

Next Steps and Recommendations

Participants outlined a set of priority actions to enhance city-level engagement in R&R efforts. These recommendations aim to bridge policy and practice by clarifying the role of municipalities, strengthening coordination and equipping local actors with the tools and resources they need to lead in this space:

• Expand municipal legal mandates for engagement in R&R:
  National laws and policy frameworks should clearly define and empower the role of municipalities in R&R processes. This includes enabling them to form formal partnerships with government entities, NGOs, academic institutions and the private sector. Clarifying mandates can also help unlock funding streams and ensure legal protection for cities undertaking sensitive work.
• Integrate R&R into local strategies and plans:
  R&R programmes should be embedded in municipal development plans and social inclusion strategies, with actions tailored to the local context and informed by risk assessments and community consultations. Municipalities should develop local indicators and collect disaggregated data to monitor progress, ensure accountability and adapt interventions over time.
• Enhance multi-level coordination and local ownership in R&R:
  Effective R&R require strong, structured coordination across all levels of governance. National authorities should formally recognise municipalities as essential partners and ensure their meaningful participation in policy-making bodies and strategic planning processes. Clear frameworks should be established to align national and local efforts, promote regular dialogue among relevant sectors, such as justice, health, education, and security, and avoid duplication. At the operational level, municipalities should adopt multi-agency coordination mechanisms, such as local task forces or referral systems, to manage individual cases in a holistic, rights-based, and person-centred manner. These mechanisms should facilitate responsible information sharing, include families and communities in the reintegration process, and reflect the lived realities of local service delivery and community engagement.
• Strengthen institutional representation of municipalities:
  Municipalities should be included as full members of regional and national committees addressing the return and reintegration of individuals from conflict zones. Their involvement ensures that the local perspective, particularly in terms of service provision and community relations, is reflected in broader policy decisions.
• Mobilise civil society as a key implementation partner:
  Civil society organisations, especially those embedded within local communities, are well-positioned to support R&R through awareness campaigns, service delivery, mentorship, psychosocial support and trust-building activities. Municipalities should facilitate these partnerships and co-design programming that leverages local knowledge, cultural sensitivity and lived experience.
• Leverage the role of regional councils for funding and outreach:
  Regional Councils in Morocco, which often have greater access to financial resources and are mandated to support local development, should be actively engaged in supporting municipal R&R initiatives. They can act as a bridge between municipalities and national or international partners, and channel funding to grassroots projects with strong social impact.
• Deepen engagement with international organisations and donors:
  International actors play a critical role in supporting technical expertise, capacity-building and financial assistance for local R&R programmes. Municipalities should proactively engage with these partners to advocate for greater support and exchange good practices.
• Allocate sustainable funding and human resources:
  Municipalities require dedicated budgets and staff to effectively implement R&R initiatives. This includes trained personnel in social work, community safety, youth services and mental health. Budget lines for prevention, reintegration and resilience-building should be institutionalised rather than reliant on ad hoc or short-term project funding.
• Invest in local capacity-building and knowledge sharing:
  Local officials, service providers, and community leaders need access to specialised training on managing returnees, trauma-informed care, prevention of radicalisation and reintegration planning. National-level actors and municipal associations should facilitate platforms for peer learning, cross-city exchanges and the sharing of good practices and tools across municipalities.
• Develop robust monitoring and evaluation systems:
  Municipalities should create M&E frameworks to assess the effectiveness of R&R programmes, drawing on both qualitative and quantitative data. This allows for evidence-based adjustments, improved accountability to communities and the documentation of impact for national and international stakeholders.
  
  Building on the insights and momentum generated through this workshop, Strong Cities will continue to support local governments and partners in Morocco and beyond to strengthen their engagement in rehabilitation and reintegration efforts. As a next step, Strong Cities will work closely with interested municipalities to identify priority areas for capacity-building and technical assistance, including support for the development of local action plans, coordination frameworks and community-based interventions. Where possible, Strong Cities will facilitate peer exchange opportunities with cities from Europe, North America and the MENA region to deepen practical learning on inclusive, rights-based approaches to R&R. At the national level, Strong Cities will engage with relevant ministries and partners to advocate for the formal recognition and resourcing of municipalities as key actors in R&R strategies, and to advance whole-of-society responses that place prevention, inclusion and resilience at their core.

Additional Resources

• Countering Hate Speech in Times of Crisis: Considerations for Mayors and Local Governments, Strong Cities Network, December 2024
• Managing Migration: City-Led Approaches for Being an Inclusive, Welcoming and Socially-Cohesive City, Strong Cities Network, December 2024
• City-Led Prevention of Hate, Extremism and Polarisation: Leveraging Local Youth Councils, Strong Cities Network, December 2024
• City-Led Youth Engagement in Addressing Hate, Extremism and Polarisation: Ten Recommendations for Cities, Strong Cities Network, December 2024
• Creating Safe, Cohesive and Resilient Cities through Urban Planning & Design: Ten Considerations for Mayors and Local Governments, Strong Cities Network, December 2024
• National-Local Cooperation: A Pillar of City-Led Prevention of Hate, Extremism and Polarisation – A Practice Update, Strong Cities Network, December 2024
• Global Crises, Local Impacts Initiative, Strong Cities Network, 2024
• A Guide for Cities: Preventing Hate, Extremism & Polarisation, Strong Cities Network, updated 2024
• A Guide for Mayors: Preventing and Responding to Hate, Extremism & Polarisation, Strong Cities Network, updated 2024
• A Guide for City-Led Response, Strong Cities Network, May 2024
• Constructing UNESCO Media and Information Literacy Cities, Operational Guidelines, May 2024
• City Spotlights Library, Strong Cities Network
• National-Local Cooperation Toolkit, Global Counterterrorism Forum, Strong Cities, September 2023
• Rehabilitation and Reintegration of Returnees from Syria and Iraq: Ten Lessons from the Berlin Experience for Local Governments, Strong Cities Network, updated 2024

Donors and Partners

Contact Information

For more information on this event and the Strong Cities’ MENA Regional Hub, please contact [email protected]

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