Fighting terrorism at the local level: the European Union, radicalisation prevention and the negotiation of subsidiarity

In this article, we investigate how the EU mobilises a spatio-temporal imaginary of the "local" in its counter-radicalisation activities as a means of navigating subsidiarity principles and expanding its remit as a "holistic security actor" (cf. Baker-Beall [2016]. The European Union's fight against terrorism: discourse, policies, identity. Manchester: Manchester University Press). Extant work on the EU's terrorism prevention efforts has focused on how the organisation constructs transnational terror threats that require supranational, EU-level responses. Our research makes an original contribution to these literatures by demonstrating how the EU also seeks to intervene "below" the level of the nation state. EU counter-radicalisation works directly with subnational actors in municipalities, cities, and frontline public services across Member States. Employing the first systematic analysis of the EU's Radicalisation Awareness Network (RAN) outputs, we demonstrate how "the local" frames pre-emptive counter-terrorism interventions as "upstream". "Closer", or "localised", reads as "earlier" in this discourse. We also unpack how EU institutions and Member States have voiced concerns about the circumvention of subsidiarity (through engagement with local actors across the Union), by criticising the "effectiveness" of RAN. While the European Commission has taken steps towards addressing these grievances, its proposals reflect a further renegotiation and repositioning of the EU as a security "facilitator" across spaces deemed simultaneously local and transnational.