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Strengthening the Role of Ghanaian Municipalities in the Rehabilitation and Reintegration of Returnees and Former Violent Extremist Offenders

Publication Date:

01/07/2026

Content Type:

Event Reports

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AccraCoastal West AfricaGhanaRehabilitation and Reintegration

Summary

On 1 – 2 July 2026, the Strong Cities Network convened a National Consultative Workshop in Accra on the role of local governments in the rehabilitation and reintegration (R&R) of returnees and former violent extremist offenders. The workshop brought together more than 35 mayors, government representatives, national and local officials, law enforcement officers, youth leaders and civil society organisations from across Ghana, as well as international partners. 

Supported by the German Federal Foreign Office, the workshop aimed to strengthen the capacity of local governments to contribute to whole-of-society approaches for the rehabilitation and reintegration of returnees and former violent extremist offenders. Many participants, including mayors and security officials, noted that this was the first national-level forum dedicated to discussing R&R challenges and opportunities in Ghana. 

Opening remarks emphasised both preparedness and the critical role of local governments. Samuel Seth Kpasah, Director of Local Governance and Decentralization at the Ministry of Local Government, Chieftaincy and Religious Affairs, stressed that preventing violent extremism requires human and economic interventions alongside security measures. He highlighted the importance of strengthening local capacity to address human security needs and referenced the Government of Ghana’s flagship 24-Hour Economy initiative as an important mechanism for expanding economic opportunity and resilience at the local level. 

Douglas Iddrisu Allortey, Deputy Director of the National Counter Terrorism Fusion Centre (NCTFC), highlighted the Centre’s role in coordinating national efforts to prevent and counter terrorism and violent extremism under the National Security Strategy and the National Framework for Preventing and Countering Violent Extremism and Terrorism (NFPCVET). He emphasised the importance of a whole-of-government and whole-of-society approach involving security agencies, local governments, civil society organisations and religious actors. 

In her remarks, Sivine Jansen, Chargée d’Affaires at the German Embassy in Accra, advocated for human-centred approaches rooted in local leadership and community ownership. Drawing on her engagement with municipalities across Ghana, she emphasised that sustainable security is built within communities and requires collaboration among governments, civil society organisations, traditional authorities, youth leaders and religious leaders. 

The workshop took place against a backdrop of growing concern regarding rehabilitation, disengagement and reintegration in Ghana, particularly in light of the absence of dedicated legislation and operational guidance for managing returnees exposed to violent extremist groups or ideologies and the need to strengthen prison systems against radicalisation and violent extremist recruitment. 

Key Findings

• Local governments can play a critical role in R&R by integrating R&R activities into existing mandates, structures and service-delivery mechanisms, even in the absence of a dedicated national R&R framework.

• While R&R remains a relatively new area of work for most municipalities, participants emphasised the importance of building institutional foundations and local capacity in anticipation of future challenges.

• Significant coordination gaps remain between national and local actors, underscoring the need for stronger communication, information-sharing and joint planning mechanisms. 

• Participants consistently framed R&R as a human security issue requiring a balanced approach that combines security, social inclusion, psychosocial support and economic opportunity.

Threats & Key Challenges

Participants highlighted an increasingly complex and interconnected threat environment across coastal West Africa. Discussions emphasised how the geographic spread of violent extremist activity, cross-border organised crime, communal tensions and population displacement are reshaping security dynamics, particularly in border regions. 

According to the NCTFC, Ghana faces several internal vulnerabilities, including communal and chieftaincy disputes, farmer-herder tensions, kidnapping and organised crime, porous borders, illicit trafficking, cross-border recruitment and risks associated with illegal mining and terrorist financing.

While Ghana has not experienced a terrorist attack on its territory, participants stressed that instability in the Sahel continues to create significant indirect pressures. Representatives from districts bordering Burkina Faso highlighted their proximity to areas affected by violent extremist activity and emphasised the need to prepare for potential spillover effects. Officials from Bole and Sawla-Tuna-Kalba Districts cited the growing need to support both refugees and host communities in ways that reduce tensions and strengthen social cohesion. 

Participants repeatedly stressed the importance of strengthening preparedness in northern border communities, where longstanding social, economic and family ties extend across national boundaries. While these relationships often enhance resilience, they may also create pathways for criminal activity, radicalisation and recruitment if adequate safeguards are not in place. 

Local government representatives also highlighted the continuing impact of farmer-herder tensions, communal disputes and resource competition. These challenges are compounded by limited financial, human and logistical resources at the district level, as well as overstretched security services and porous borders that facilitate illicit activities and undermine effective law enforcement. 

Participants agreed that Ghana’s preparedness efforts must go beyond traditional security measures and focus on building local resilience, strengthening coordination between national and local actors and addressing the underlying social and economic vulnerabilities that may increase susceptibility to violent extremism. 

Key Themes

1. Policy and Legislative Gaps in Ghana’s R&R Architecture 

Participants acknowledged that Ghana possesses a relatively robust framework for countering terrorism and prevention and countering violent extremism (P/CVE), including the Anti-Terrorism Law (2008), the National Framework for Preventing and Countering Violent Extremism and Terrorism (NAFPCVET) and the National Security Strategy, supplemented by initiatives led by different national level agencies such as the Prisons, Police, and Immigration services. However, presentations highlighted significant gaps relating to R&R, including with respect to the role of municipalities. 

A senior legal officer from the NCTFC noted that the current framework does not adequately address the management of returnees from conflict zones, deported offenders, individuals completing terrorism-related sentences, or the needs of affected family members. Participants highlighted the absence of statutory provisions for risk assessment, rehabilitation programming, post-release supervision and structured reintegration support. 

Additional gaps identified include limited consideration of victims’ needs, psychosocial recovery, community healing and the vulnerabilities faced by spouses and children of terrorist actors. Participants also noted that existing legislation is not fully aligned with international standards, including relevant United Nations Security Council resolutions. 

Participants repeatedly highlighted the absence of clearly defined mandates for local governments within Ghana’s R&R architecture. While District Security Councils (DISECs) and Municipal Security Councils (MUSECs) are expected to play important coordination roles, their responsibilities for R&R are neither clearly articulated nor adequately resourced. 

As Sheriff Amarh, General Secretary of the National Association of Local Authorities in Ghana, noted, R&R is currently not embedded within local government mandates, limiting the incentives and capacity of municipalities to develop specialised programming. 

Overall, participants called for legislative reform, clearer institutional responsibilities, stronger coordination mechanisms and dedicated resources to support local implementation. 

2. Strengthening National and Local Capacity for Rehabilitation and Reintegration

While R&R remains a relatively new area of work for most Ghanaian municipalities, participants agreed that building capacity now is critical to preparing for future challenges. 

The Ghana Prisons Service presented proactive efforts to develop Standard Operating Procedures (SOPs) for managing R&R-related risks. Although the service has not yet managed convicted violent extremist offenders, officials outlined procedures involving background checks, risk and needs assessments, classification processes, and tailored rehabilitation interventions. These include vocational training, family engagement, religious counselling, peer-support initiatives and reintegration planning. 

The Ghana Immigration Service illustrated a different stage of institutional development. While its work focuses largely on immigration-related offenders, including more than 2,200 returnees during the first half of 2026, it has yet to establish dedicated R&R programming for individuals connected to violent extremism. Participants noted that the agency’s Community Engagement and Policing Strategy could provide a useful foundation for future initiatives. 

Local government representatives expressed strong interest in learning how rehabilitation and reintegration could be incorporated into district planning, development strategies and service delivery systems. Several participants noted that this was their first exposure to structured discussions on R&R and highlighted the need for practical guidance, training and peer learning. 

Examples from Bole, Sawla-Tuna-Kalba and other districts illustrated how local governments are already addressing challenges linked to conflict, displacement and social cohesion through early warning systems, peace committees, engagement with traditional authorities and youth-focused interventions. 

The United Nations Office on Drugs and Crime (UNODC) reinforced the importance of effective prison management as a component of preventing violent extremism. Participants discussed international standards and good practices relating to prison conditions, alternatives to detention, rehabilitation programming and maintaining family ties, all of which contribute to successful reintegration. 

Turning to the national context in Ghana, he noted that Ghana’s terrorism threat level differs from that of other countries in the region, citing around 600 terrorism-related cases in the northern Ghana, while affirming the UNODC’s preparedness to support, he flagged the risk of prison overcrowding, pointing to Nigeria as a cautionary example, while highlighting parole and early release mechanisms as tools to help manage and reduce prison populations. 

A consistent message throughout discussions was that R&R should be understood not only as a security issue, but also as a governance and development challenge requiring capable local institutions, trained personnel, strong community relationships and support systems for individuals and communities affected by violence and displacement. 

3. Human Security as the Foundation for Effective R&R

Participants consistently emphasised that successful R&R depends on investments in human security, including livelihoods, social cohesion, community acceptance, education, psychosocial support and effective local governance.

Municipal representatives shared practical examples of initiatives designed to address root causes of vulnerability. In Bole District, investments in agriculture and livelihoods were highlighted as tools for reducing the socioeconomic conditions that extremist groups may seek to exploit. Participants emphasised that strengthening local economic opportunities contributes to resilience and social stability.

Representatives from the Global Community Engagement and Resilience Fund (GCERF) highlighted resilience-building initiatives across northern Ghana that focus on awareness-raising, livelihood development and community capacity building. Drawing on experiences from the Sahel, participants emphasised that successful R&R depends on both technical interventions, such as risk assessment and monitoring and social interventions designed to foster trust, acceptance and community support.

The Director of the Ghana Immigration Service similarly stressed that reintegration cannot be achieved through security measures alone and must be accompanied by social and economic interventions.

Participants also highlighted the importance of avoiding unintended consequences. Several speakers cautioned that livelihood or financial support programs should be designed carefully to avoid perceptions that involvement in violent extremism is being rewarded.

Experiences from other countries in the region were cited as examples of how public perceptions can undermine reintegration efforts if host communities feel excluded.

The Gulf of Guinea Social Cohesion (SOCO) project (funded by the World Bank) was highlighted as an example of a preventive, human-security-focused initiative designed to strengthen resilience, reduce vulnerabilities and address drivers of instability across northern Ghana and neighbouring countries.

Participants agreed that rehabilitation and reintegration should ultimately be viewed as investments in human dignity, economic and social inclusion, community resilience and long-term stability rather than solely as security interventions.

4. Building a District-Level Methodology for R&R Preparedness and Crisis Management

A central feature of the workshop was a series of simulation exercises designed to test leadership, coordination and crisis-management responses to R&R scenarios involving returnees and former offenders. Rather than treating these scenarios as isolated incidents, participants developed a common framework for responding to R&R challenges.

The first step involved risk profiling, including an assessment of individual circumstances, previous exposure to extremist networks, psychosocial needs and potential security risks. Participants emphasised that support measures should be tailored to individual needs rather than applied uniformly.

A second recurring theme was the importance of institutional coordination and clear ownership. Across both scenarios, participants repeatedly identified DISECs as the most appropriate lead coordination mechanism, supported by working alongside the Department of Social Welfare, National Signals Bureau, Bureau of National Intelligence and community-based actors such as trusted leaders, imams and family members.

Participants stressed that shared responsibility across government, family and community must still be anchored by a single lead institution, since unclear ownership was seen as a direct driver of potential escalation.

This emphasis on coordination extended beyond the simulation itself. Various presentations, including from NCTFC and the Immigration and Prisons Services, underscored that effectively addressing R&R risks requires working collaboratively across sectors rather than in silos. The officials from the NCTFC noted that Ghana’s national framework is built on a whole-of-society and whole-of-government approach, inviting municipal and district chief executives to work collaboratively both within their districts and with national actors.

Local officials echoed this view throughout the sessions. For instance, Binduri District Chief Executive Martin Ariku stressed that “We cannot leave reintegration in the hands of the security agencies alone. We must have a multi-stakeholder approach to it, where we bring on board every key stakeholder under the Local Governance Act”. Similarly, the Metropolitan Chief Executive for Tamale and the Sagnarigu Municipal Chief Executive shared examples of their regular collaboration on various issues that are not always directly linked to violent extremism or R&R, but illustrative of the broader collaborative culture participants saw as essential to addressing security challenges effectively.

The exercises also highlighted the importance of rights-based approaches. Participants stressed that monitoring and supervision must remain proportionate, lawful and respectful of human rights. Security measures should be calibrated to individual circumstances and designed to support reintegration rather than punishment.

Early warning mechanisms emerged as another critical component. Participants concluded that local governments and DISECs are often best positioned to identify emerging concerns through routine engagement with communities. They emphasised the value of ongoing community relationships as a complement to formal security channels.

Discussions further highlighted the importance of calibrated public communication. Participants recommended engaging trusted community leaders, responding to misinformation with factual information and ensuring coordinated communication strategies during sensitive situations.

Finally, participants emphasised the value of integrating returnees into mainstream social welfare, livelihood and vocational support systems wherever possible. Mainstreaming support was viewed as a practical way to reduce stigma and avoid perceptions that reintegration programming provides special benefits unavailable to other vulnerable populations.

The simulations highlighted an emerging district-level framework based on six core principles: risk profiling, individualised responses, clear institutional leadership, rights-based monitoring, early warning and community engagement, calibrated communication and integrated support services.

Recommendations

Legislation and Policy

• Amend the 2008 Anti-Terrorism Act to reflect current realities, explicitly incorporating R&R and the return of extremist offenders and terrorism suspects, and ensure National Security and Counter-Terrorism strategies clearly define roles, responsibilities, indicators and expertise needed for implementation.
• Develop a comprehensive national R&R framework that defines institutional responsibilities, coordination mechanisms (including between government institutions and traditional leaders) and accountability structures.
• Designate a national coordinator for R&R to clarify institutional ownership and accountability.

Coordination and Institutional Architecture

• Formalise clear communication channels between DISECs and national authorities (including the NCTFC), ensuring security agencies are systematically involved in verifying returnees’ backgrounds (e.g., via a watchlist) before local reintegration proceeds, rather than handling cases on an ad hoc basis.
• Adopt a multi-stakeholder approach at the local level, bringing together all relevant actors and consolidating overlapping sub-committees where possible, while still allowing each to operate with a degree of independence; note that coordination is often complicated by political factors, making reliable information flow and accountability essential.
• Establish a working group with the Ghana Prisons Service to design R&R interventions and involve the Ministry of Gender given the particular vulnerability of women and children.
• Prioritise religious and traditional leaders in community engagement strategies, given their consistently higher levels of public trust compared to security institutions.

Coordination and Governance

• Formalise communication and referral pathways between national institutions and local actors, including DISECs and MUSECs.
• Strengthen district- and municipal-level coordination structures by clarifying mandates and providing adequate operational support.

Capacity Building

• Build data protection and confidentiality capacity to support secure information-sharing between local and national actors and equip frontline officers with the tools needed for effective information management, particularly given emerging hybrid threats linked to returnees.
• Adequately fund and equip local governments as genuine security partners and deliver targeted capacity building for Metropolitan, Municipal and District Chief Executives (MMDCEs), district coordinating directors, traditional leaders, and prominent youth leaders with tailored training programmes developed in partnership with institutions such as the Kofi Annan International Peacekeeping Training Centre.
• Address practical enforcement gaps, such as District Chief Executives’ limited authority to enforce certain bylaws (e.g., livestock movement restrictions linked to herder-related tensions).

Community Resilience, Media and Communication

• Support public awareness initiatives designed to reduce stigma, strengthen social cohesion and facilitate community acceptance of R&R.

• Invest in training media personalities and in-house institutional media capacity to responsibly report on security and conflict issues and manage the flow of sensitive information, while empowering the National Commission for Civic Education (NCCE) to play a stronger role.
• Recognise the growing importance of the media and digital landscape in countering violent extremism, including emerging risks posed by artificial intelligence.

Funding and Resources

• Review resource allocation to assemblies, particularly around migration-related responsibilities and how newly formed assemblies can integrate security functions within their policy structures following elections.

Next Steps

Engagement and Coordination

• The Strong Cities Network will continue supporting national and local stakeholders to strengthen the role of local governments in the rehabilitation and reintegration of returnees and former violent extremist offenders through sustained engagement with government institutions, local authorities and international partners.

Peer Learning and Exchange

• Strong Cities will facilitate continued peer-to-peer exchanges between Ghanaian municipalities and international counterparts to share lessons, practices and approaches related to rehabilitation, reintegration and prevention.

Development of an Action Agenda

• Insights generated through the workshop will inform the development of a Strong Cities Network Action Agenda for local governments on R&R across coastal West Africa, providing practical guidance for municipalities seeking to strengthen preparedness and resilience in the face of evolving security challenges.

Additional Resources

• Strong Cities Mapping on the Overlooked Role of African Cities in Preventing and Countering Violent Extremism, Strong Cities Network (2022)
• Strengthening the role of cities in Coastal West Africa to address hate, extremism and polarisation through enhanced National-Local Cooperation, Strong Cities Network (October 2023)
• Rehabilitation and Reintegration of Returnees from Syria and Iraq: Ten Lessons from the Berlin Experience for Local Governments, Strong Cities Network (Updated October 2024) 
• Unleashing the Potential of Moroccan Cities in Supporting a Whole-of-Society Approach to Rehabilitation and Reintegration, Strong Cities Network (June 2025)
• National-Local Cooperation Toolkit, Global Counterterrorism Forum, Strong Cities Network (September 2023)
• 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 April 2024)
• A Guide for Mayors: Preventing and Responding to Hate, Extremism & Polarisation, Strong Cities Network (Updated March 2025)
• 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

Partners

Contact Information

For more information on this event and the Strong Cities Network’s work in West Africa, please contact [email protected].