The country’s counter-terrorism measures including the law used to ban Palestine Action are being used too widely, and the anti-radicalisation scheme Prevent “is not fit for purpose”, a major review has found.
The Independent Commission on UK Counter-Terrorism Law, Policy and Practice found that the current official definition of terrorism is too broad and “extends beyond acts of violence or serious threat, creating uncertainty and overreach in its application”.
It said that measures used to ban groups such as Palestine Action should be restricted so that they are only used to protect the public from terrorism, and that proscription of terror groups should lapse after five years unless renewed.
The three-year review also said the way the Prevent scheme was being used had “blurred” its original purpose and that the current approach was “not fit for purpose”.
“Prevent referrals increasingly involve individuals experiencing complex vulnerabilities, including mental ill health, social isolation, or neurodivergence, rather than clear terrorism-related risks,” it said.
The commission said that those involved in potential terror plots against the UK are “increasingly younger and may be driven by complex mixes of ideology, grievance, and personal vulnerability”.
It said: “The commission heard evidence that, without careful calibration, counter-terrorism powers risk being applied too broadly – capturing behaviour that is harmful but not terrorist.
“This concern is most acute in the Prevent programme, where the boundaries between safeguarding, criminal justice, and counter-terrorism have become increasingly blurred.”
Officials have seen a surge in referrals to Prevent in the wake of the Southport murders.
Hundreds of alleged Palestine Action protesters, many of whom held banners announcing their support for the group, have been arrested at various demonstrations (Photo: Rasid Necati Aslm/Anadolu via Getty Images)Home Office figures released last week showed there were 8,778 referrals of individuals to the anti-extremism scheme in 2024/25 – up 27% from 6,922 in the previous year.
The latest figures show that referrals in the “no ideology” category made up 4,917 (56%) – the largest proportion of referrals of the 8,769 cases where a type of concern was logged.
The report said that of 58,000 people referred to Prevent since 2015, more than 90% had no counter-terrorism concerns.
It also called for increased parliamentary scrutiny of decisions to proscribe groups, and for suspects to only be charged under section 12 or 13 of the Terrorism Act, which cover support for banned groups, “where there is clear intent to commit the offence”.
It said the “far-reaching implications” of banning certain groups “can create confusion, deter lawful civic engagement, and strain relations with communities connected to affected organisations – particularly where banned groups also pursue political objectives.”
Kneecap rapper Liam Og O hAnnaidh, whose stage name is Mo Chara, was charged under section 13 for allegedly holding up a Hezbollah flag at a gig, before the case was thrown out due to a technical error.
Hundreds of alleged Palestine Action protesters have been charged under the same law, the majority for holding up banners that said: “I oppose genocide. I support Palestine Action.”
The commission made a total of 113 recommendations, including rules to ban the removal of citizenship for those born British or registered British as children, and restricting its removal for naturalised adults.
It said the estimated 55 to 72 British men, women and children who remain in Syria having travelled there during the civil war should also be brought back to the UK.
A Home Office spokesperson said: “We thank the Independent Commission for their report, which is essential to ensuring our system continues to be fit for purpose.
“The UK has one of the most robust counter-terrorism frameworks in the world, and we continue to strengthen these to reflect the evolving nature of the threat.
“Prevent continues to play a vital role in this by stopping people from becoming terrorists, and has diverted close to 6,000 people away from violent ideologies.
“But we know there is further to go, which is why a number of recommendations from the Lessons for Prevent report have been immediately actioned, and its remit and effectiveness is consistently reviewed.”
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