Reports on Russia
Russia Country Report on Terrorism - 2006
Released April 30, 2007
Office of the Coordinator for Counterterrorism
Europe and Eurasia Overview
"We must always keep in mind that terrorism, as an age-old method of coercion, has no deeper links to any culture or religion. Hence, we should be cautious not to associate any faith with terrorism."
Mr. Abdullah Gul
Deputy Prime Minister and
Minister of Foreign Affairs
Republic of Turkey
UN General Assembly, 61st Session
New York City, September 22, 2006
While no major terrorist attacks took place in Europe in 2006, foiled plots and concerns over increasing radicalization among immigrant youth served as stimulus for increased cooperation and efforts to strengthen counterterrorism capabilities. Italy and Germany worked closely with neighboring countries and held a successful and incident-free Winter Olympics and World Cup, respectively. European nations continued to work in close partnership with the United States on the global counterterrorism campaign and continued to enhance both their individual and collective abilities to deal with a terrorist threat characterized by both external and, increasingly, internal components. The contributions of European countries in sharing intelligence, arresting members of terrorist cells, and interdicting terrorist financing and logistics were vital elements in the War on Terror.
At the June 2004 U.S. - EU Summit, the sides agreed on a Declaration on Combating Terrorism that renewed the transatlantic commitment to develop measures to maximize capacities to detect, investigate and prosecute terrorists, prevent terrorist attacks, prevent access by terrorists to financial and other economic resources, enhance information sharing and cooperation among law enforcement agencies, and improve the effectiveness of border information systems. These commitments were reconfirmed at the 2006 Summit and work continued on implementation. In 2006, the ratification/implementation of the Extradition and Mutual Legal Assistance Treaties between the U.S. and EU Member States was ongoing. (In the United States, the treaties were submitted to the Senate Foreign Relations Committee.) In October, the U.S. and EU reached an interim agreement on the transferring of passenger name record data, which was necessitated by the nullification of the earlier agreement by a European court. On November 6, the U.S. and the EU signed an agreement to facilitate U.S. participation in Eurojust, the EU's prosecutorial liaison organization. Also in November, the U.S. and EU launched a formal dialogue to develop common data protection standards to facilitate efforts to share terrorist information.
European nations are active participants in a variety of multilateral organizations that contribute to counterterrorist efforts, including the G8, NATO, the Financial Action Task Force (FATF), the Organization for Security and Cooperation in Europe (OSCE), the International Maritime Organization (IMO), and the International Civil Aviation Organization (ICAO). The United States and its partners work through these organizations to establish and implement best practices, build the counterterrorism capabilities of "weak but willing" states, and help fight the War on Terror globally. OSCE members committed themselves to becoming parties to the 13 UN terrorism conventions and protocols, to work together to modernize travel documents and shipping container security, to prevent and suppress the financing of terrorist organizations, and to implement UNSC Resolution 1540 to counter WMD (related materials and the means of delivery) proliferation. (See Chapter 5 for further information on the G8, NATO, FATF, and OSCE.)
Terrorist activity and the presence of terrorist support networks in Europe remained a source of concern. Efforts to combat the threat in Europe were sometimes slowed by legal protections that made it difficult to take firm judicial action against suspected terrorists, asylum laws that afforded loopholes, inadequate legislation, or standards of evidence that limited the use of classified information in holding terrorist suspects. Terrorists are also able to take advantage of the ease of travel among Schengen countries1. Some European states have at times not been able to prosecute successfully or hold some of the suspected terrorists brought before their courts. The EU as a whole remained reluctant to take steps to block the assets of charities associated with HAMAS and Hizballah.
European governments were increasingly concerned about radicalization among their indigenous populations and sought greater understanding of the process of "radicalization" and how to prevent it. Several governments increased outreach to Muslim communities living within their countries and made attempts to gain support from within those communities to counter the appeal of extremist ideology.
The announcement by al-Qaida in the Islamic Maghreb (AQIM), formerly the Salafist Group for Preaching and Combat (GSPC), that it was merging with al-Qaida sparked concerns throughout Europe, in particular in France, after the AQIM/GSPC made more threats against what it termed "crusading" westerners, particularly American and French citizens.
In March, the Basque Fatherland and Liberty (ETA) terrorist group declared a "permanent cease-fire," leading to hopes that its long campaign would at last come to an end. On December 30, however, following street violence by ETA supporters and the organization's theft of 350 handguns from an armory in France, ETA set off a huge car bomb at the Madrid International Airport that killed two Ecuadorian immigrants.
In July, terrorists planted suitcase bombs that failed to detonate on two German trains.
In August, in cooperation with the U.S. and Pakistan, British authorities disrupted a terrorist plot to blow up aircraft traveling between the United Kingdom and the United States. Some 15 persons suspected of being involved in the U.K.-based plot were arrested.
Political progress in Northern Ireland continued, resulting in a marked decrease in terrorist incidents. The Independent Monitoring Commission (IMC), which monitors progress by paramilitary groups in ending violent activities, reported in October that evidence showed the leadership of the Provisional Irish Republican Army (IRA) was committed to following a peaceful path.
Cooperation among European law enforcement agencies was important to counterterrorism successes. France and Spain continued to cooperate effectively against ETA. Belgian courts convicted individuals connected to the 2003 Madrid bombings and several countries, including France, Spain and Italy, broke up terrorist networks facilitating travel by foreign fighters to Iraq.
U.S.- European bioterrorism cooperation expanded. The topic was addressed at high-level U.S.- EU counterterrorism talks and at the U.S.- Russia Counterterrorism Working Group. Switzerland and the U.S. co-sponsored the successful "Black Ice" bioterrorism coordination exercise in Montreux, hosting senior officials from numerous multilateral organizations. During its 2006 G8 presidency, Russia worked closely with the U.S. to launch the Global Initiative to Combat Nuclear Terrorism.
Several significant terrorist leaders were killed in Russia. In July, Russia's most wanted terrorist, Chechen separatist Shamil Basayev, was killed. In November, Russian security forces killed Abu Hafs al-Urdani, the al-Qaida-linked, Jordanian-born commander of foreign fighters in Chechnya. Central and Eastern European states made strides in countering terrorism in 2006. Many states across the Balkans, Baltics, and Caucasus sent troops to Iraq, Afghanistan, and Kosovo.
Russia
The Russian government continued to view counterterrorism as a top priority and considered cooperation with the United States in this area as one of the pillars of the bilateral relationship. Much of the terrorist activity in Russia was homegrown and linked to both the Chechen separatist movement and in some ways, to separate, but overlapping, North Caucasus-wide extremism. However, there was evidence of a foreign terrorist presence in the North Caucasus with financial and ideological ties to international terrorism. There were no high-profile terrorist incidents involving large numbers of civilian casualties, as had been the case in the four previous years.
Russian security forces carried out operations that led to the deaths of two significant terrorist leaders. In July, Russia's most wanted terrorist, Chechen separatist Shamil Basayev, was killed in the North Caucasus. Russian officials claim he was targeted by security forces but there were reports he was killed accidentally by his own explosives. In November, Abu Hafs al-Urdani, the AQ-linked, Jordanian-born commander of foreign separatist forces in Chechnya, was killed by security forces. In June Russian security forces killed Chechen separatist leader Abdul Khalim Sadulayev, whom the Russian government considered a terrorist, and who was nominal head of the Chechen separatist "government" to which Basayev belonged.
The most significant terrorist incident for Russia took place outside the borders of the Russian Federation. In June, five employees of the Russian Embassy in Baghdad were abducted and murdered, reportedly by members of the Mujahideen Shura Council, an umbrella group incorporating al-Qaida in Iraq. This was followed by a Presidential decree that ordered Russian security forces to "eliminate" those responsible and authorized the deployment of Russian security forces abroad to prevent "international terrorist activity."
The Russian government continued to take steps to improve coordination of counterterrorism activities and expand law enforcement responsibilities domestically. In February, President Putin signed a decree creating the National Counterterrorism Committee (NCC), to be headed by the Federal Security Service (FSB). The NCC was an effort to rationalize the decision-making process following the 2004 Beslan school siege, and was designed to establish a single chain of command and centralize the decision-making process at the national level, subordinating the Regional Counterterrorism Committees headed by governors. In March, the Russian legislature approved the law "On Counteracting Terrorism," which further defined the role of the NCC. The legislation expanded the concept of terrorism under Russian law, going beyond physical involvement in planning or carrying out terrorist attacks. Under the law, terrorism also included promotion of "terrorist ideas" and distributing materials or information to encourage terrorist activity or inciting individuals to commit a terrorist act.
The government provided further transparency about its counterterrorist efforts in July by releasing, for the first time, a list of 17 organizations it designated as terrorist entities. All entries to the list must be approved by the Supreme Court, and must meet the following criteria:
- Activities aimed at changing Russia's constitutional system through violence, including terrorism;
- Links to illegal armed groups and other extremist organizations operating in the North Caucasus; and
- Association with, or links to, groups regarded as terrorists by the international community.
The list includes the following organizations: AQ; Supreme Military Majlisul Shura of the Caucasus Mujahedin United Forces; Ichkeria and Dagestan People's Congress; Asbat al-Ansar; Holy War (Al Jihad or Egyptian Islamic Jihad); Islamic Group (Al-Gamaa al Islamia); Moslem Brothers (Al-Ikhvan al-Muslimun); Party of Islamic Liberation (Hiz'but-Tahrir al-Islami); Lashkar-I-Taiba; Islamic Group (Jamaat-i-Islami); Taliban Movement; Islamic Party of Turkestan (former Islamic movement of Uzbekistan); Social Reform Society (Jamiyat Ikhya al-Islakh al-Ijtimai); Islamic Heritage Renaissance Society (Jamiyat Ikhya at-Turaz al-Islami); Two Holies' House (Al Kharamein); Islamic Jihad -- Mujahidin Jammat; and Jund ash-Sham.
There were three known organizations operating within the Russian Federation that the United States designated terrorist entities in February 2003, under Executive Order 13224. They have not been designated as Foreign Terrorist Organizations under 8 USC Section 1189. These include:
- The Special Purpose Islamic Regiment (SPIR). The SPIR was one of three Chechen-affiliated terrorist groups that furnished personnel to carry out the seizure of the Dubrovka Theater in Moscow in October 2003. It is not clear if the SPIR was still active, nor is it clear who commanded the organization.
- Riyadus-Salikhin Reconnaissance and Sabotage Battalion of Chechen Martyrs. The group had been led by Basayev. It used terrorism as part of an effort to secure an independent Muslim state in the North Caucasus. The group has not mounted a terrorist attack since the Beslan school attack in September 2004. The group's strength is probably no more than 50 fighters at any given time.
- Islamic International Peacekeeping Brigade (IIPB). The IIPB is a terrorist group affiliated with the Chechen separatist movement demanding a single Islamic state in the North Caucasus. Arab mujahedin still operating in Chechnya fell under the command of Abu Hafs al-Urdani, until his death in November. According to the pro-separatist website Kavkaz Center, Saudi national "Mukhanned" (full name not known) is the group's new commander. The IIPB has engaged in terrorist and guerrilla operations against Russian forces, pro-Russian Chechen forces, and Chechen non-combatants. At its peak, the group had up to 400 fighters, including as many as 100 Arabs and other foreign fighters, but almost certainly has suffered significant attrition. It operates primarily in Russia in adjacent areas of the North Caucasus, particularly in the mountainous south of Chechnya, with major logistical activities in Georgia, Azerbaijan, and Turkey. The IIPB and its Arab leaders appear to be a primary conduit for Islamic funding of the Chechen guerrillas, in part through links to AQ-related financiers on the Arabian Peninsula. The IIPB was also listed under UNSCR 1267 for its associations with AQ, and the Terrorist Exclusion List.
Noteworthy court cases involving terrorist suspects included:
- In May, Nurpashi Kulayev was found guilty of all charges for his role in the 2004 Beslan school siege and was sentenced to life in prison. He was charged with murder and terrorism. Kulayev was the sole known survivor among the Beslan hostage takers. Kulayev claimed he did not kill anyone during the siege.
- In November, the highest court in the Russian Republic of Dagestan found Magomed Salikhov innocent of the 1999 apartment bombing that killed 64 people. Russian authorities cited that attack and a series of other bombings to justify sending troops back into Chechnya in 1999. The court had previously found Salikhov not guilty but that decision was overturned by the Federal Supreme Court, which ordered him retried.
- In December, Spanish police arrested suspected Chechen terrorist Murat Gasayev in Mislata, Valencia. Russian authorities were preparing an extradition request. Under Spanish law, Gasayev would first have to be found guilty in a Spanish court.
The United States and Russia continued to cooperate on a broad range of counterterrorism issues, including efforts to destroy, safeguard, and prevent the proliferation of WMD. The U.S.- Russian Counterterrorism Working Group (CTWG) met for its fifteenth session September 13-14 in Washington, fostering cooperative, operational links between numerous U.S. and Russian agencies. Law enforcement, intelligence, and policy cooperation have increased as a result of the work of the CTWG. At the St. Petersburg G8 Summit in July, the United States and Russia jointly announced the Global Initiative to Combat Nuclear Terrorism, and Russia and the United States invited other nations to join. The Initiative demonstrates Russia's effort to take a leadership role in establishing a partnership amongst nations to accelerate efforts to combat nuclear terrorism. Partner nations are committed to steps to combat nuclear terrorism in a variety of ways, to include safeguarding radioactive and nuclear materials, preventing nuclear smuggling, and sharing information. The first meeting of the Initiative took place in Morocco in October.
Russia was an active member of the Financial Action Task Force on Money Laundering and Terrorist Financing (FATF). Russia fulfilled its pledge to create a Eurasian FATF-style regional body (FSRB) in 2004, known as the Eurasia Group on Money Laundering (EAG), and as the group's leading force remained its chair. The EAG, whose members also include Belarus, China, Kazakhstan, Kyrgyzstan, and Tajikistan, made significant progress toward building Financial Intelligence Units (FIUs) and established the necessary legislative and regulatory frameworks in member states to help those states improve their compliance with international standards.
Russia used its position in international fora to build cooperative mechanisms and programs to counter terrorism. For example, Russia led efforts to make counterterrorism cooperation a key element in the Shanghai Cooperation Organization (SCO) and the Collective Security Treaty Organization (CSTO). Russia has also promoted counterterrorism within the framework of the Organization for Security and Cooperation in Europe, the G8, and the United Nations.