Geneva, 11 March, 2026.- States must urgently adopt an international definition of terrorism to protect human rights from terrorism and excessive State responses to it, says a new report by Ben Saul, the UN Special Rapporteur on the promotion and protection of human rights and fundamental freedoms while countering terrorism
“For decades, vague and overbroad definitions of terrorism have led to countless human rights violations,” Saul said, presenting his report to the Human Rights Council. “These include unlawful killings, arbitrary detentions, enforced disappearances, torture, unfair trials, privacy breaches, refoulement, and violations of political freedoms.”
“The abuse of counter-terrorism laws has become a tool of choice to suppress critics and civil society, including through transnational repression,” the Special Rapporteur said.
“False accusations of terrorism have even led to illegal aggression.”
He noted that excessive definitions can counterproductively fuel grievances and reduce cooperation with authorities.
International law requires terrorism offences to be precise so that individuals understand their liability. Offences must be limited to genuinely terrorist conduct.
The Special Rapporteur’s model definition limits terrorism to serious criminal acts that intentionally cause death, serious bodily injury, or hostage-taking, where the conduct:
is intended to either (i) provoke a state of terror in the public or a group of persons, or (ii) unduly compel a Government or an international organisation to do or to abstain from doing any act;
aims to advance a political or ideological purpose; and
intentionally causes serious damage to a country or an international organisation.
The definition thus limits terrorism to serious harms to people, not merely property, and differentiates political violence from organized crime for profit.
The model definition also recommends exceptions for:
Acts of protest that do not intentionally cause death or serious bodily injury;
Conduct in armed conflict that does not violate international humanitarian law;
Humanitarian activities by impartial humanitarian organizations;
Activities of State military forces that are consistent with international law; and
Acts intended to establish or re-establish democracy, constitutional Government or the rule of law, or protect human rights.
The report warns that States must not commit terrorism and that officials can be criminally liable for it. ”In responding to State terrorism, other Governments must always respect international law,” Saul said.
“Adopting a definition that respects human rights is essential to prevent the abuse of counter-terrorism laws and narratives and ensure countering terrorism is effective and legitimate.”