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National-Local Cooperation: A Pillar of City-Led Prevention of Hate, Extremism and Polarisation – A Practice Update

Last updated:
27/11/2024
Publication Date:
27/11/2024
Content Type:

National-local cooperation (NLC) includes the structures, resources and approaches that help ensure that national strategies are informed by and reflect localised needs and priorities and enable actors across all levels and sectors to work collectively and maximise their impact. NLC recognises the comparative advantages that each level of government – national, regional, state and local – have and elevates them in a coherent strategy. This strategic framework is a foundation for operationalising and sustaining a whole-of-society approach for addressing hate, extremism and polarisation and a key component in enhancing the role that mayors and local government play in this effort.

The Strong Cities Network (Strong Cities) is dedicated to amplifying city leadership in addressing hate, extremism and polarisation. NLC is a core pillar of this strategy and provides a framework through which Strong Cities can help actors at all levels recognise and elevate the critical role that local leaders and other city-level actors play. That is why Strong Cities began working with the Global Counterterrorism Forum’s (GCTF) Countering Violent Extremism Working Group, co-chaired by Australia and Indonesia, as part of the Initiative on National-Local Cooperation in Preventing and Countering Violent Extremism. This led to the elaboration of the GCTF’s 2020 Memorandum on Good Practices on Strengthening National-Local Cooperation in Preventing and Countering Violent Extremism Conducive to Terrorism, which provides policymakers, practitioners and international actors with guidance for enhancing NLC, organised into 13 good practices.

To provide additional guidance and support to national and local stakeholders in actioning this guidance, Strong Cities developed an accompanying GCTF Toolkit: A Roadmap for Operationalizing a “Whole of Society” Approach to Preventing and Countering Violent Extremism that Leads to Terrorism. The Toolkit explores six pillars that underlie effective NLC and presents promising practices and recommendations that are rooted in real-world examples drawn from more than 60 case studies from around the world. The Toolkit was officially launched in September 2023 during a GCTF-Strong Cities side event, organised in the margins of the UN General Assembly alongside the Strong Cities Fourth Global Summit.

Just over one year later, this policy brief provides an update on Strong Cities’ NLC-focused work with cities and a new cache of examples and lessons drawn from Strong Cities’ wider engagements since then.

The views expressed and examples cited in this policy brief do not necessarily reflect those of Strong Cities members, partner organisations or sponsors of the Network’s mission.

There is no singular approach to NLC. To be effective and sustainable, NLC must be drawn from and reflect existing structures, policies and practices in the country, both those associated with preventing and responding to hate, extremism and polarisation and those that are not. While hate and extremism are the primary focus here, NLC exerts an influence across departments and issues and can improve efficacy in addressing related challenges around climate, education, migration and gender-based, gang and other forms of violence – all issues that can affect and are affected by national and local efforts to build peaceful, cohesive and resilient cities. NLC is more than just collaboration between government offices and between government and non-government stakeholders; it can empower communities, reinforce a strong and independent civil society and give voice to the local experience, ensuring that national policies are informed by community needs and priorities and have the support from local government and non-governmental stakeholders. Therefore, cities and other prevention stakeholders are encouraged to take a holistic approach in their exploration of NLC to identify all opportunities to enhance cooperation and strengthen prevention in their country, region, city and community while taking into account the specificities of the local context.

Rather than establishing a set of rigid rules, Strong Cities has identified six pillars of NLC: trust, inclusivity, coordination, communication, capacity and sustainability. If an actor at any level wants to explore opportunities to improve NLC where they are, these pillars provide a practical place to focus, where gradual improvements can contribute to advancing their efforts to address hate, polarisation and extremism. This policy brief will examine a series of relevant, recent case studies and explore how they demonstrate good practice in one or more of these pillars.

Strong Cities has been working closely with national and local officials in Uganda, as well as researchers and civil society, to include a role for cities in localising the National Strategy for Preventing and Countering Violent Extremism. Strong Cities led an extensive mapping exercise with Ugandan researchers – which included a meeting in October 2022 with national and local officials – to identify key opportunities for strengthening the role of local actors in addressing hate and extremism, as well as the barriers impeding their success. Strong Cities then convened a broader group of national and local representatives in April 2023, including governmental and non-governmental representatives, to present the findings, sensitise them on NLC and plot a path toward greater local representation and participation in efforts to address hate, extremism and violence. As a result, the national government committed to include local government actors, for example, in the National Steering Committee responsible for overseeing the implementation of the National Strategy. Strong Cities’ East and Southern Africa Regional Hub (ESA Regional Hub) has continued to work with Ugandan local officials to provide peer-learning opportunities and technical support.

In the last year, several Ugandan municipalities have taken a stronger role in advancing prevention efforts locally:  

While there are promising advances in local leadership, direct collaboration between local and national government bodies and officials has been slow to develop, with efforts to update the National Strategy still underway. To continue supporting this process, Strong Cities ESA Regional Hub convened a roundtable with national and local officials in October 2024 to discuss the inclusion of local government in the review and eventual implementation of the National Strategy. The roundtable led to the establishment of a taskforce, which will be chaired by Regina Bakitte, Mayor of Nansana Municipality and current chair of AMICAALL Uganda (a national mayoral alliance), comprised of local government officials, civil society, youth leaders and Resident District Commissioners (national government actors with a mandate for safety and security at the district level). The taskforce will work with the National Counter Terrorism Centre to review the National Strategy and make recommendations about the role of local governments in its implementation. Strong Cities’ ESA Regional Hub will support this process.

Malawi released its National Strategy to Prevent Extremism and Counter Terrorism in October 2023. To help introduce local actors to the strategy and clarify their role in its implementation, Strong Cities convened a meeting of national and local actors in March 2024. There, national government officials, mayors and other city officials, civil society and representatives from international organisations explored opportunities for pursuing NLC to facilitate the localised implementation of the new National Strategy, as well as to identify critical barriers to NLC and ways to overcome them.

This meeting resulted in several priority action points, which have advanced NLC in addressing hate and extremism in Malawi, including:

To continue to support this process, Strong Cities’ ESA Regional Hub will host a follow-up dialogue in February 2025 to discuss progress and facilitate continued implementation of the roadmap. The meeting will reconvene national government representatives and local actors, with a special focus on the four cities where the Peace and Unity Committees are being established.

In May 2024, Strong Cities’ Middle East and North Africa Regional Hub (MENA Regional Hub) partnered with Iraq’s National Committee for Countering Violent Extremism (NCCVE) and the European Union Advisory Mission (EUAM) to convene a two-day roundtable with national and local actors on operationalising a whole-of-society approach to prevention. This meeting sensitised actors at all levels about NLC and contributed to a wider effort to facilitate the localisation of Iraq’s National Strategy for Countering Violent Extremism, which provides a mandate for local governments in hate and extremism prevention.

Since this roundtable, the NCCVE has taken several concrete steps to support local actors and enhance city-level engagement in prevention, including:

Strong Cities’ MENA Regional Hub is currently working with IOM Iraq to support the implementation of Preventing Violent Extremism Local Action Plans (LPoAs) in six Iraqi cities. Under this partnership, the Regional Hub is strengthening the capacities of the local PVE subcommittees, including by empowering in-country facilitators through training and mentorship to translate the recommendations within the LPoAs into practical initiatives that have a tangible impact in the targeted localities, thus, contributing to the localisation of Iraq’s National Strategy for Countering Violent Extremism.

In July 2024, Finland’s Ministry of the Interior announced an updated Action Plan for the Prevention and Combating of Violent Radicalisation and Violent Extremism, with NLC at its core. The Action Plan’s 43 measures are divided into national, regional and local initiatives and emphasises cross-level and cross-sectoral cooperation. To help ensure this cooperation in practice, the Ministry of Interior has appointed a multi-sectoral cooperation group staffed by representatives from 28 different agencies and organisations, including national and local government authorities, civil society and researchers. Local execution of the strategy is supported by local cooperation networks, the composition of which varies between localities, and anchor teams that support individual interventions. The Ministry of Interior also operates TOUVI, an online information-sharing platform for people and organisations working in the field of internal security, which provides a space for registered members to share their work, identify collaborators and find information both from the government and other actors.

This example has several notable takeaways for improving NLC:

Public Safety Canada’s  Centre for Community Engagement and Prevention of Violence (Canada Centre) leads the federal government’s efforts to address hate, extremism and violence, and it does so in a cross-level collaborative way that empowers local actors. One of the ways it cooperates with local actors is through the Federal/Provincial/Territorial (FPT) working group on Countering Radicalization to Violence. A Canada Centre representative shared with Strong Cities that, in the last twelve months, the Centre and the British Columbia Ministry of Public Safety have co-chaired three FPT meetings with representatives from provincial security ministries. These meetings facilitated information exchanges across jurisdictions, enhanced the knowledge base of provincial and territorial-level partners on threat-related issues and intervention approaches and highlighted areas for further work. 

Beyond the dedicated working group, the Canada Centre also regularly meets with key local stakeholders, including municipal governments, forming a consistent bridge between the national and local levels. For example, representatives from the Centre joined nearly 500 attendees at the Safety of Our Cities conference in Mississauga in September 2024. The conference was organised by the Peel Regional Police and provided an opportunity to explore how policing has evolved and what more can be done to restore balance and safety to communities.

These efforts offer several notable takeaways for improving NLC:

Strong Cities is working with Public Safety Canada and the Foundation for a Path Forward to enhance cross-city collaboration in Canada and further enhance the capacity of city actors, including mayors, city officials, civil society and community organisations. Strong Cities organised two conferences for city officials in 2024 where cities across the country could explore the challenges they are facing, particularly in the wake of successive global crises, and exchange approaches and lessons learned in addressing them. The first was organised in cooperation with the Canadian Centre for Safer Communities as part of Public Safety Canada’s 2024 ‘Megaweek’ Event Series on Countering Radicalization to Violence on 30-31 May 2024 in Montreal (Québec). The second was organised in cooperation with the City of Victoria (British Columbia) on 30-31 October in Victoria and included cities from across western Canada and the western United States.

The Department of Justice’s Community Relations Service (CRS) provides services and support for communities across the United States facing conflict based on a protected status, such as race, national origin, gender, sexual orientation, etc. Acting as a neutral party, CRS facilitates dialogue, mediation and consultation to resolve conflicts within and between communities through shared solutions. It also provides training to build key capacities so community members can better prevent and resolve future conflicts. For example, in February 2024, CRS worked with faith leaders in Jacksonville  (Florida) to provide de-escalation training for 50 community leaders and facilitated a Protecting Places of Worship forum in Miami (Florida) for 500 faith and community leaders and law enforcement personnel. CRS also produces resources to help support conflict resolution in specific contexts, such as a Training Program to Build Relationships with Arab American Communities, a Guide for Navigating Campus Conflicts and an Educational Program to Counter Antisemitism.

This example has several notable takeaways for improving NLC:

The Department of Homeland Security’s CP3 works to “prevent targeted violence and terrorism nationwide through funding, training, increased public awareness and partnerships across every level of government, the private sector, and in local communities”. CP3 engages with state and county governments, as well as local organisations and community actors. It provides training and capacity-building support through 18 Regional Prevention Coordinators throughout the country and oversees the Targeted Violence and Terrorism Prevention (TVTP) Grant Program that awards funding to a range of local and community actors to bolster community-led prevention. It connects local communities with federal prevention resources and provides or facilitates technical assistance to these critical stakeholders. Through its funding support of Strong Cities, CP3 is helping small and mid-sized cities in the United States better understand their role in prevention and take steps to enhance their prevention effort policies and programmes, including by leveraging existing resources.

This example has several notable takeaways for improving NLC:

The National Institute of Local Government (NILG) is a nationally-mandated training and research institute dedicated to strengthening local government and enhancing their capacity to address the challenges facing their residents. The NILG takes a whole-of-society approach and provides training for mayors, city practitioners, and civil society representatives. While the NILG is not exclusively focused on issues related to hate, extremism, polarisation or violence, it does help build the capacity of local actors on these issues and forms a core part of Bangladesh’s framework for NLC, including for prevention.

This example has several notable takeaways for improving NLC:

The Indonesia Knowledge Hub (I-KHUB) is an online platform where civil society and government agencies can share data and their experiences with addressing hate, extremism and violence, along with other issues related to the justice sector. The I-KHUB provides an online space for prevention actors to connect and collaborate, facilitating cooperation across sectors and levels throughout Indonesia and encouraging local and regional actors to play an active role in delivering the National Action Plan to Prevent Violent Extremism. The I-KHUB also includes two physical spaces in Jakarta and Makassar to encourage partner activities where actors can make use of meeting spaces and collaborative tools.

To encourage uptake of the I-KHUB among local and regional actors, the EU Delegation to Indonesia helped organise a series of workshops in 2023 to introduce the platform and offer training on topics related to violent extremism and prevention.

This example has several notable takeaways for improving NLC:

The Philippines’s Department of the Interior and Local Government-National Capital Region (DILG-NCR) developed a training module for local stakeholders to enhance their understanding of violent extremism and how to prevent and counter it within their own communities. In June 2023, the DILG-NCR organised a training session for 100 barangay representatives (the smallest administrative unit operating at the village or neighbourhood level) from across the National Capital Region (NCR), which featured speakers from different national agencies.

This example has several notable takeaways for improving NLC:

The principles at the heart of effective NLC are also important for enhancing cross-sectoral cooperation at the city level. Across India, several municipal governments have established community-level mechanisms to bring people together across communities and sectors to manage conflict and address localised threats to social cohesion. This inclusive and coordinated approach to local governance helps enhance cooperation at higher levels by establishing structures that facilitate regional and national-level responses to hyper-localised needs. The following examples were shared by city leaders during Strong Cities’ South Asia Regional Hub: Mayoral Roundtable on Local Efforts to Build Social Harmony and Cohesion in June 2023. More information can be found in the event summary.

Resident Welfare Associations (RWAs) have been established throughout Delhi at the ward level to represent the needs of residents and promote social harmony, tolerance and peace. RWAs are composed of local leaders from various communities and meet regularly to discuss social issues and grievances. RWAs also play a role in crisis response, helping to prevent tensions between communities from escalating into violence. The Delhi government also operates a peace committee composed of community stakeholders to manage and prevent inter-communal tensions. The committee was crucial in de-escalatingthe 2020 riots in Delhi and preventing future incidents.

The city of Mumbai established Mohalla Committees in cooperation withtheMumbai policetohelp maintain social harmony and address local disputes that threaten the city’s social cohesion.Each committee operates at the neighbourhood level and includes leaders from diverse religious and ethnic backgrounds.

In Shimla, the Deputy Mayor chaired the Social Justice Commission, which convened local stakeholders, civil society, community-based organisations and law enforcement to discuss peace and security issues. Additionally, Shimla developed Ward Sabhas, neighbourhood-level committees that meet bi-annually to address local social issues.

These examples have several notable takeaways for improving NLC:

NLC is a critical component of an effective and sustainable whole-of-society approach to prevention. Among other things, it helps ensure national strategies reflect the diverse needs and perspectives of cities and communities across a given country and incentivises these local stakeholders to facilitate their localisation. NLC holds the key to advancing local leadership in prevention; therefore, Strong Cities will continue to promote cross-level collaboration and encourage its members and other cities, as well as national governments, to look for ways to enhance the structures, policies and programmes in their respective contexts that will bolster cooperation between national and local governments, in particular. In the coming months, Strong Cities will build on the work outlined in this practice update and continue to catalogue examples of good practice and highlight lessons learned to help guide and inspire national and local actors worldwide.

Resources

For more information on Strong Cities’ National Local Cooperation work, please contact Kelsey Bjornsgaard, Director of Practice, Strong Cities Network, here.