The recent spike in terror-related incidents, including the Crocus City Hall attack in Moscow and several arrests of ISIS-affiliated individuals globally, has reignited concerns about radicalization and the need for effective counterterrorism policies. One critical aspect of counterterrorism that often receives insufficient attention is repatriation. This process provides a key pathway for returning individuals to their home countries, where they can access support, undergo rehabilitation, and reduce the risk of re-radicalization. In Central Asia, repatriation, when combined with effective rehabilitation efforts, is not only a humanitarian necessity for the thousands of women and children in dire conditions at camps like al-Hol in Syria but also a crucial element of a comprehensive counterterrorism strategy.

Over 4,000 Central Asian nationals left to be foreign fighters (FTFs) for the Islamic State (IS) since 2012. When the Islamic State lost territory between 2014 and 2017, about 2,000 Central Asians continued to remain at camps like al-Hol and Roj, where they endure violence, severe overcrowding, inadequate sanitation, and high rates of disease and mortality, especially among children.  Approximately 50 percent of al-Hol's residents are under 12 years old, many of whom were born in the camp, making them especially vulnerable and likely to be targeted by ISIS for future recruitment.

Addressing this humanitarian and international security crisis is critical, and Central Asian countries have taken a leading role in the effort. Repatriation, the process of returning individuals from foreign countries to their country of origin, is a key component of this strategy.  As of March 2024, more than 2,100 Central Asians have been brought back to the region through U.S.- assisted humanitarian efforts. In July, the U.S. Department of State applauded the Kyrgyz Republic for its “exemplary action on repatriation” of FTFs from northeast Syria.  Data Source: Soliev, Nodirbek. “Tracing the Fate of Central Asian Fighters in Syria: Remainers, Repatriates, Returnees, and Relocators.”

Data Source: Soliev, Nodirbek. “Tracing the Fate of Central Asian Fighters in Syria: Remainers, Repatriates, Returnees, and Relocators.”

Why Is Repatriation Important
Repatriation provides a pathway for individuals to return to their home countries, where they can receive support and undergo rehabilitation, reducing the likelihood of continued extremism. It helps break the cycle of violence and ensures that those who were coerced or misled into extremism are given a chance to reintegrate into society. By addressing the needs of returnees and providing appropriate interventions, repatriation contributes to regional stability and counters the spread of extremist ideologies.

UNICEF reports that about 40,000 individuals from over 80 countries traveled to Syria and Iraq to aid the ISIS and other extremist groups. Though a number of these individuals joined willingly, others, particularly women and children, were coerced into participation or simply forced to relocate with their families.

For some, repatriation involves a process designed to facilitate their transition back into families and communities. Each country has developed its own programs and expertise in this area, and sharing these regional practices helps refine and accelerate the process.

Central Asian countries have actively engaged in repatriation efforts to address the complexities and risks associated with returning ISIS-linked individuals and children. In July 2019,  government officials, NGOs, and representatives from Kazakhstan, Uzbekistan, Tajikistan, and Kyrgyzstan convened in Bishkek for an event organized by the U.S. Institute of Peace intended to enhance collaboration among policymakers, experts, and civil society, focusing on sharing experiences, discussing policy priorities, and presenting international best practices for the effective rehabilitation and reintegration of returnees.

On May 14, 2024, the inaugural meeting of the Central Asia Regional Expert Council on the Rehabilitation and Reintegration of Returnees took place in Tashkent, Uzbekistan. Officials from Central Asian nations, along with representatives from international entities such as UN agencies, the Organization for Security and Co-operation in Europe (OSCE), and the Shanghai Cooperation Organization (SCO), gathered with experts in the field. This meeting was a huge step in advancing global and regional counterterrorism strategies by providing a crucial platform for Central Asian countries to exchange experiences on repatriation. Discussions focused on implementing a comprehensive, whole-of-government approach to effectively facilitate relocation, rehabilitation, and reintegration and emphasized the need to bolster the involvement of local communities and civil society organizations.

Challenges of Repatriation

 

One of the persistent challenges of repatriation is addressing fears that it might reintroduce radicalized individuals into society. Many of the 53,000 people reamining in camps, half of whom are children under the age of 11, did not choose to live under ISIS.  Nonetheless, their reintegration is hindered by perceptions of their affiliation with the extremist group. Christopher Landberg, a former Senior Official at the U.S. Department of State Bureau of Counterterrorism, argues that repatriation is also “a key strategy for preventing the resurgence of ISIS in the region and ensuring that fighters are held accountable for their crimes through prosecution in their countries of origin, where appropriate.”

However, the repatriation process remains complicated by the lack of binding international agreements and the need for effective coordination and humanitarian support. Central Asian leaders have taken some steps to address these challenges. In 2023, Uzbekistan President Shavkat Mirziyoyev proposed creating a council consisting of top specialists from Central Asian countries and guided by the U.N. Office of Counter-Terrorism (UNOCT) that aims to enhance regional and national efforts for rehabilitating and reintegrating individuals returning from conflict zones and to develop counterterrorism strategies. Though there has been progress made in addressing the complex challenges of repatriation, counterproductive policies enacted in the name of counterterrorism also pose a challenge.

Though there has been progress made in addressing the hurdles of repatriation, counterproductive policies enacted in the name of counterterrorism also pose a challenge.  Tajikistan's recent ban on hijabs might be seen as part of a broader effort to restrict Islamic practices due to fears of rising extremism, especially following the deadly terror attack in Moscow in March where eight Tajik nationals affiliated with ISKP were deemed responsible. Such policies can alienate Muslim communities, potentially strengthening their religious identities and feelings of discrimination, which could inadvertently fuel radicalization and violent extremism. Enhancing counterterrorism efforts is crucial, ensuring that measures taken are not misused to suppress dissent under the pretext of combating terrorism. In July, the United Nations Working Group on Arbitrary Detention (WGAD) urged Tajik authorities to release five imprisoned human rights defenders in Tajikistan, who were deemed victims of arbitrary detention. Several of these individuals had been convicted on charges of terrorism. Addressing these challenges is essential not only for protecting human rights but also for ensuring that repatriation efforts are effective and do not inadvertently contribute to the cycle of radicalization and extremism.

Despite these hurdles, the ongoing commitment to refining and enhancing repatriation strategies and the region's dedication to addressing both humanitarian and security concerns is commendable. As radicalization continues to rise, developing a coordinated, regional model for repatriation in Central Asia becomes increasingly critical. With Western Europe having contributed nearly the same number of foreign fighters to ISIS as Central Asia, yet having been significantly less inclined to repatriate nationals, the Central Asian region’s proactive approach sets an important precedent for information sharing and regional cooperation.