Defining terrorism

Despite sustained international efforts, no universally agreed definition of terrorism has yet
emerged. This absence has contributed to divergent legal approaches, with implications for
legislative coherence, international cooperation and the protection of fundamental rights. At
the same time, the evolving nature of terrorism requires continued attention and careful
legislative consideration.

This publication reflects the IPU’s commitment to supporting its Member Parliaments in
navigating these complexities. Drawing on international practice, legal analysis and
comparative perspectives, it offers a structured contribution to ongoing parliamentary
engagement on this important issue.

The definition presented in this document is intended as a guiding proposal to support
parliamentary reflection and comparative analysis. It does not seek to establish a binding
institutional position, nor does it require formal approval or consensus among all Member
Parliaments. Rather, it provides a structured legal framework to assist parliaments in fulfilling
their legislative, oversight and budgetary responsibilities in addressing terrorism, ensuring
that counter-terrorism measures are effective, accountable and consistent with international
law.