Director-General's
Address to Canberra-based EU Ambassadors
Terrorism and Security - the Australian and European experiences
Tuesday 7 March 2006
Thank you for the invitation to lunch and for giving me the opportunity to speak with you today.
I'd like to offer my perspectives on:
some of the issues and challenges the threat of terrorism presents for intelligence agencies and the wider community;
where I see some commonality between the Australian and the European experience; and
the ongoing importance of international cooperation.
It seems to me that while there are some differences between the European experience and that of Australia, there are also a number of things we have in common, particularly some of the challenges we face.
I'm referring here to such things as:
having appropriate risk management measures in place to keep the community safe from harm without unduly disrupting or hindering people going about the normal business of their lives;
detecting would be terrorists - whether they be short-term visitors, long-term residents or native-born citizens - before they can achieve their objectives;
having an appropriate legislative and legal framework that will allow for the prosecution and, where appropriate, the incarceration of terrorists and those who would provide aid or assistance to them before they can achieve their objectives;
stemming the radicalisation of future generations of terrorists intent on killing and injuring innocent civilians simply on the basis of who they are and how they choose to live their lives; and
having the ability and flexibility to respond to unexpected threats or incidents, including those prompted by events overseas, in ways which are measured but effective.
Let me illustrate this last point with two recent examples.
The publication (and re-publication) of a number of cartoons and the subsequent reaction within Muslim communities around the world clearly demonstrates two things:
how events in individual countries can have an impact on the security situation of others; and
how one incident can give impetus to a range of other issues or local agendas.
We were fortunate in Australia that there was not a violent reaction here - due partly to the swift action of some community leaders to defuse the issue.
In the second case, the violence in Cronulla and other areas in December last year involving youths from different parts of Sydney and from various ethnic backgrounds highlights how an isolated incident can quickly escalate into a wider conflict.
In this case, some elements attempted to present what was essentially a common assault and gang activity as a wider conflict with religious and racist undertones.
Both these incidents clearly illustrate how quickly security issues can arise and escalate.
They show how individuals and groups who subscribe to an extreme version of Islam can interpret isolated actions or incidents as an attack on their religion, justifying (in their mind) a swift and violent response by them.
They also show how racist elements in the community are prepared to take advantage of such situations to further their own interests.
These are broad community relations issues which require sensitive handling by political and community leaders and the relevant government agencies.
It is also important that intelligence and law enforcement agencies respond to such incidents in ways which are balanced and measured and which are seen not to be biased or favouring one group over another, but which are firm and decisive and which deter future such activity.
On the other hand, in a community that is increasingly sensitive about threats to their security, there is an expectation that there will always be intelligence that can provide forewarning of such incidents.
In reality, it will not always be possible for intelligence agencies to provide specific forewarning in every case.
That brings me to the issue of the changing nature of terrorist threat to Australian interests.
Not so many years ago, our assessment was that the threat of terrorism, while real, was largely remote and directed at others.
That is no longer the case with attacks specifically directed against Australians in Bali in 2002 and 2005, Jakarta in 2004 and Baghdad in 2005.
As I have previously said publicly, we know that terrorists are intent on mounting an attack in Australia, including by people who already may be living amongst us.
Those who would do harm to Australian interests have shown themselves to be innovative, determined, and resilient.
And they learn from events and action taken against like-minded people elsewhere.
While it is not a pre-requisite that they take direction or assistance from abroad, certainly they would learn from the experience of like-minded individuals and groups in other parts of the world.
The international links between extremists allows them to develop and share ideas and know-how, including how to conceal their activities and intentions.
That is why incidents and developments in Europe and elsewhere, whether in the form of actual attacks or the successful disruption of groups by local authorities, strongly resonate with us here in Australia.
We are 'cautiously reassured' when we learn of the disruption of terrorist planning for an attack - and there have been many such instances in Europe.
The intelligence gained and shared is invariably useful to us, informing our own assessments of the threat.
And it reduces the number of would-be terrorists who are free to achieve their violent goals.
I say 'cautiously reassured' because, in reality, intelligence and law enforcement agencies are not omnipotent.
Even with the strengthening of intelligence and security capabilities, the 2004 attacks on the Madrid railway and the 2005 attacks on the London transport system showed all too clearly that it remains possible for unknown elements to plan and conduct such attacks without any forewarning.
The fortuitous identification through a routine traffic stop in the Netherlands of a Belgian-born individual of Moroccan heritage with terrorist links further underlines the extent to which such elements can exist in our community without coming to the attention of the intelligence apparatus.
Given the global dimensions of the threat of terrorism - including to Australian interests in many parts of the world - we have sought to maximise the effectiveness of our engagement with our international partners, including by:
increasing and/or strengthening our intelligence liaison presence abroad; and
extending and deepening our international liaison relationships and network.
We will continue to seek out new ways to work cooperatively with traditional and non-traditional partner agencies, to ensure that we maximise our effectiveness in protecting our own citizens and those of our international partners.
I note that countries in the EU also have strengthened multi-lateral arrangements to improve international co-operation.
While an effective international cooperation and intelligence sharing framework is an essential plank in the wider effort against the threat of terrorism, at the national level it is important that intelligence and law enforcement agencies have:
the capabilities and laws that enable us to uncover the unknown individuals and groups - not just investigate the known extremists in our community;
the special powers and capabilities to remain effective against increasingly sophisticated targets that are adept at operating clandestinely; and
the capability to intervene quickly as the timeframe between planning, preparation and attack can be short.
Australia's recent legislative amendments have focused on addressing these issues.
The elements I have mentioned are just some of the manifestations of what has been a significant increase in the complexity, reach and the immediacy of the terrorist threat over the last several years.
All of which has had a significant impact on the pace and volume of the work we do and, in some respects, how we go about fulfilling our functions.
As a result, ASIO has received additional resources with more committed by government that will see the Organisation grow over the next five years.
These additional resources, when combined with the additional powers granted to ASIO under legislation since 2001, will better equip us to perform our functions.
ASIO, like other security intelligence agencies operating within a parliamentary democracy, will continue to use its resources and special powers judiciously; and
use them in ways which preserve broader community confidence, trust and support for the work of the Organisation.
Community confidence in the work of the Organisation is also dependent, in part, on the effectiveness of ASIO's oversight and accountability framework which makes information about ASIO and its activities publicly available through:
ASIO's tabling of an unclassified annual Report to Parliament;
an annual report tabled in Parliament by the Inspector General of Intelligence and Security (who ensures ASIO acts with legality and propriety and with due regard for human rights);
reports tabled by the Parliamentary Joint Committee on Intelligence and Security in connection with its reviews of ASIO's administration and expenditure, the proscription of groups as terrorist organisations, and other aspects from time to time; and
an ASIO website which is currently being reviewed and updated.
Such measures are long standing and are well accepted by the Australian Parliament and the public as providing appropriate accountability and visibility of ASIO's actions in the Australian context.
So the final point I would like to leave you with today is that while our particular circumstances may vary, some of the issues we face are common:
a security environment in which incidents in one country can have an impact of the security situation of others;
the potential for threats to materialise quickly and from unexpected or previously unknown sources;
a need to ensure our investigative and legislative framework is appropriate for the threats we need to counter while retaining broad community support; and
the need to continue to develop our international relationships and seek out opportunities to work together effectively.
Thank you.