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The Challenges of ConceptualizingTer rorismLEONARD WEINBERGa , AMI PEDAHZURb & SIVAN HIRSCH-HOEFLERca Department of Political Science , University of Nevada Reno ,Nevada, USAb Department of Political Science , University of Haifa , Haifa, Israelc Faculty of Political and Social Sciences , Antwerp, BelgiumPublished online: 10 Aug 2010.

To cite this article: LEONARD WEINBERG , AMI PEDAHZUR & SIVAN HIRSCH-HOEFLER (2004) TheChallenges of Conceptualizing Terrorism, Terrorism and Political Violence, 16:4, 777-794, DOI:10.1080/095465590899768

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The Challenges of Conceptualizing Terrorism

LEONARD WEINBERGDepartment of Political Science, University of NevadaReno, Nevada, USA

AMI PEDAHZURDepartment of Political ScienceUniversity of HaifaHaifa, Israel

SIVAN HIRSCH-HOEFLERFaculty of Political and Social SciencesUniversity of Antwerp, Antwerp, Belgium

This analysis begins by exploring various reasons that the concept of terrorism hasevaded a widely agreed upon definition for so long despite the efforts of so many wri-ters. Emphasis is placed on the difficulties associated with all essentially contested concepts. In addition, the investigation calls attention to such problems as concep-tual stretching and traveling. In an effort to solve the difficulties, the inquiryattempts to determine a consensus definition of terrorism by turning to an empirical analysis of how the term has been employed by academics over the years. Specifi-cally, the well-known definition developed by Alex Schmid, based upon responsesto a questionnaire he circulated in 1985, is compared with the way the concepthas been employed by contributors to the major journals in the field: Terrorism,Studies in Conflict and Terrorism , and Terrorism and Political Violence . The 22definitional elements of which Schmids definition is composed are compared tothe frequency with which they appear in the professional journals. If these elementsappear frequently in both the Schmid definition and those employed by the journal contributors, they are then used to form a consensus definition of the concept.The most striking feature of this academic consensus over the meaning of terrorismis the virtual absence of references to the psychological element, heretofore widelythought to be at the heart of the concept.

Few terms or concepts in contemporary political discourse have proved as hard todefine as terrorism. When the subject itself appeared, or reappeared, in the late1960s and early 1970s, various professional commentators noted the difficultiesinvolved in articulating a definition which could gain wide agreement among thoseconcerned with the subject. One writer, Walter Laqueur, simply threw up his hands,arguing that terrorism had appeared in so many different forms and under so manydifferent circumstances that a comprehensive definition was impossible. An observer

Address correspondence to Ami Pedahzur, University of Haifa, School of PoliticalScience, Division of Government and Political Theory, Mount Carmel Haifa 31905, Israel.E-mail: [email protected]

Terrorism and Political Violence, Vol.16, No.4 (Winter 2004), pp.777794Copyright Taylor and Francis, Inc., 2004DOI: 10.1080/095465590899768

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would simply know it when s =he saw it. 1 Almost 30 years later, and after thepublication of thousands of books and articles on the subject, another leading figurein the field noted that . . . the problem of defining terrorism has hindered analysissince the inception of studies in the early 1970s and has shown few signs of abating

as we enter the twenty-first century.2

Why has the term been so hard to define? Whyhas the concept evaded definitional efforts of so many for so long?

Some answers seem obvious. For one thing, terrorism has been widely used forpurposes of political effect. Somewhat paradoxically, Menachem Begin, as the leaderof the Irgun (Lehis Zionist rival) in postwar Palestine, was the first to see the propa-ganda advantage in referring to his followers as freedom fighters rather thanterrorists. Afterwards, terrorist groups adopted this appealing description and calledthemselves freedom fighters, understanding the propaganda advantage. 3 The termterrorism became confused during what David C. Rapoport has labeled terrorismof the second-wave, 4 since organizations understood that they needed a new lan-guage to describe themselves.

The term had accumulated so many negative connotations that those who ident-ified themselves as such incurred enormous political liabilities. 5 The application of the term to the activities of a group, organization or state institution conveys oppro-brium. Naturally, those to whom it is applied regard it as an accusation and oftenseek to turn the tables on their accusers by labeling them as the real terrorists.The resulting war of words simply adds to the ambiguity and compounds the con-fusion. Often the polemic involves confusion, unintended or deliberate, between endsand means. A particular group or organization cannot be waging a terrorist cam-paign because it hopes to achieve some (self-defined) noble purpose. 6

More important, though, for purposes of serious analysis, the term terrorism has

been subject to virtually all the sins to which complex concepts are heir. Here are justa few. First, following the work of W. B. Gallie and William Connolly, terrorism hasbecome an essentially contested concept, one whose meaning lends itself to endlessdispute but no resolution.

To quote Connolly:

When the disagreement does not simply reflect different readings of evi-dence within a fully shared system of concepts, we can say that a concep-tual dispute has arisen. When the concept involved is appraisive . . . whenthe practice described is internally complex in that its characterizationinvolves reference to several dimensions, and when the agreed and con-tested rules of application are relatively open, enabling parties to inter-pret even those shared rules differently as new and unforeseensituations arise, then the concept in question is an essentially contestedconcept. Such concepts essentially involve endless disputes about theirproper uses on the part of their users. 7

The assumption on the part of the disputants over meaning is that if they onlyargue their cases long and hard enough, a real or essential definition will emerge. But30 years of contesting the meaning of terrorism has produced no such result. ForConnolly and Gallie, this outcome may simply be the consequence of the nature

of such concepts.Second, terrorism as a concept also seems to suffer from border and member-

ship problems. Where does terrorism stop and other forms of political violence

778 A. Pedahzur et al.

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begin, guerrilla warfare or urban guerrilla warfare, for example? The same acts, suchas air piracy or assassinations, may be considered terrorist acts on some occasionsbut not on others, usually based upon the assumed motivations of the perpetratorsor the social standing of their victims. 8

Further, terrorism suffers from stretching and traveling problems, some literal,others of an analytic character. In regard to the former, some writers seem to identifyterrorism based on the physical or social distance between the act in question and theobserver. If, for instance, an act of political violence occurs at a significant distance(geographically or psychologically) from the observer, the tendency is to give it a moreneutral or benign name. The same act carried out closer to home becomes terrorism.

Considering the stretching and traveling capacity of the term for analytic pur-poses, writers now deal with terms such as narco-terrorism and cyber-terrorism:the latter rarely involves any reference to violence or the threat of violence. Theproblem is, as Collier and Mahon put it:

When scholars take a category developed from one set of cases and extend itto additional cases, the new cases may be sufficiently different that the cate-gory is no longer appropriate in its original form. If this problem arises, theymay adapt the category by climbing the ladder of generality, thereby obeyingthe law of inverse variation. As they increase the extension, they reduce theintension to the degree necessary to fit the new contexts. 9

The choices are often between stretching the concept to the point of vagueness orinventing a new term to cover a wider range of activities, for example, low intensityconflict.

Confronted by doubt and uncertainty of this magnitude, we have concluded thatthe best way to make the definitional problem manageable is to follow Alex Schmidsadvice and divide the discussion of non-state terrorism into separate arenas of dis-course. Schmid identifies four such arenas. 10 First, there is the academic arenawhere scholars struggle to stipulate a definition useful for conducting research onthe topic. Second, there are the states statements about terrorism including thoseexpressed in the form of laws, judicial rulings and regulations. Next, for Schmid,is the public debate on the subject. By this he means the various ways the mass mediachoose to label and interpret the concept. Fourth, we may be exposed to (t)he dis-cussion of those who oppose many of our societies values and support or performacts of violence and terrorism against what they consider repressive states. 10

Unfortunately, Schmids categories are not mutually exclusive. There appears to besignificant overlap between the first and fourth arenas, in particular. Such leading advo-cates and practitioners of what many would call terrorism, as Abimael Guzman (thefounder of Perus Shining Path) and Antonio Negri (the leader of the Italian ArmedAutonomy) began their careers as academics. On the other side of the ledger, there area number of individuals who retired from careers in terrorism to become part of the aca-demic world. (Law, sociology and political science seem to be favorite destinations.)

There are still others, including the Italian Front Line and the Red Brigade lead-ership, who have participated in both arenas simultaneously. In fact, this may havecontributed to the downfall of the groups involved. Observers have noted that the

rhetoric, the public communique s of these groups became progressively moreobscure and unintelligible, the longer they continued to function. The groups lostwhatever ability they had possessed to win the support of workers and peasants

Challenges of Conceptualizing Terrorism 779

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because they could not make themselves understood. The incomprehensible rhetoricis frequently attributed to the fact that the groups members lost touch with externalreality, the longer they were required to operate on a clandestine basis. 11 However, itis possible that the communique s and other messages intended for public consump-

tion were simply written by professors who confused the first and fourth arenas as aresult of long-term exposure to both.

Despite this methodological problem we think it would still be helpful if weattempted to limit our discussion of terrorism to the academic arena. A good placeto start is with the definition Alex Schmid proposed in the volume he edited withAlbert Jongman, Political Terrorism: A New Guide to Actors, Authors, Concepts,Data bases, Theories and Literature :

Terrorism is an anxiety-inspiring method of repeated violent action,employed by (semi-) clandestine individual, group, or state actors, foridiosyncratic, criminal, or political reasons, wherebyin contrast toassassinationthe direct targets of violence are not the main targets.The immediate human victims of violence are generally chosen randomly(targets of opportunity) or selectively (representative or symbolic targets)from a target population, and serve as message generators. Threatandviolencebased communication processes between terrorist (organiza-tion), (imperiled) victims, and main target (audiences(s)), turning it intoa target of terror, a target of demands, or a target of attention, dependingon whether intimidation, coercion, or propaganda is primarily sought. 12

Schmids definition was refined from reactions he received from scholars who

responded to a questionnaire he had mailed them. The respondents had originallyproduced 109 separate definitions. The latter consisted of twenty two definitionalelements which Schmid then ranked in order of the frequency with which theyappeared in the questionnaires. The comprehensive definition he proposed (seeabove) reflected sixteen of these twenty two definitional elements. 12

Our own approach to investigating the academic domain of terrorism discourse issomewhat different than Schmids. Like him, we have relied on what the experts tell usterrorism means but we do not rely on questionnaire responses in identifying the con-cepts definitional elements. Instead, we have based our inquiry on what contributorsto leading professional journals in the field of terrorism tell us the word means to them.

To be more specific, we sought definitions from three journals whose contentswe scrutinized. We examined all the articles in Terrorism (New York: Crane Russak& Company), from 1977 through 1991 and then (Minneapolis, MN: John Scherer),19821983, 19861989; Terrorism and Political Violence (London: Frank Cass) from1990 through 2001; and Studies in Conflict and Terrorism (London: Taylor andFrancis) from 1992 through 2001. 13

Our review of these journals yielded a total of seventythree definitions (drawnfrom fiftyfive articles) (See Appendix A). How do these compare to the 109 defini-tions with their twentytwo constituent elements Schmids questionnaire produced?

Frequencies of Definitional Elements of Terrorism

A brief examination of Table 1 reveals wide differences in the relative strength of the22 definitional elements Schmid reports when compared to the journal contributors


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suggested definitions. In two instances, elements 9 (extra-normality, in breach of accepted rules, without humanitarian constraints) and 12 (arbitrariness, imper-

sonal, random character, indiscriminate), which emerged as important constituentsof Schmids definition, received no mention at all in the relevant journal articles.Another element, 10 (coercion, extortion, induction of compliance), which

Table 1. Frequencies of definitional Elements of Terrorism

Element

Schmid & Jongman Survey(1988)

frequency ( % )

Our survey(2002)

frequency ( % )

1. Violence, Force 83.5 712. Political 65 603. Fear, Terror emphasized 51 224. Threat 47 415. Psychological effects and

(anticipated) reactions41.5 5.5

6. Victim-Target differentiation 37.5 257. Purposive, Planned, Systematic,

Organized action32 11

8. Method of combat, strategy, tactic 30.5 31.59. Extranormality, in breach of

accepted rules, withouthumanitarian constrains

30 0

10. Coercion, extortion, induction of compliance

28 5.5

11. Publicity aspect 21.5 1812. Arbitrariness, impersonal, random

character, indiscrimination21 0

13. Civilians, noncombatants, neutrals,outsiders as victims

17.5 22

14. Intimidation 17 1115. Innocence of victims emphasized 15.5 1016. Group, movement, organization as

perpetrator14 29

17. Symbolic aspect, demonstration toothers

13.5 5.5

18. Incalculability, unpredictability,unexpectedness of occurrence of violence

9 1

19. Clandestine, covert nature 9 720. Repetitiveness, serial or campaign

character of violence7 0

21. Criminal 6 5.522. Demands made on third parties 4 1

Note : The Schmid & Jongman survey consists of 22 elements drawn from 109 definitions.Our survey consists of 73 definitions drawn from 55 articles collected from three journals.


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appeared in 28 percent of the definitions in Schmids survey, was mentioned in lessthan 6 percent of the journal definitions.

If we match this difference to discrepancies in references to two other elements,we may discern something of a pattern. The journal-based definitions were also

much less likely to mention the arousal of fear and terror (element 3) and psycho-logical effects and anticipated reactions (element 5) as important components. Ingeneral, then, the journal contributors placed much less emphasis on the psychologi-cal aspects of terrorism, a theme which, of course, has loomed large in general dis-cussions of the topic over the years. One obvious explanation for the paucity of references to these psychological elements among the journal articles might be thepaucity of psychologists. But this does not seem to be the case. About the sameproportion of contributors to the journals as respondents to the Schmid surveyidentified themselves as psychologists. 14

Are there aspects of the meaning of terrorism on which Schmids respondentsand the journal writers actually agree? Yes; in fact high percentages of the expertsin both categories (20 percent or more) identify terrorism as a method of combator a tactic (element 8), involving a threat (element 4) of force and violence (element1) used for a political (element 2) purpose. The pursuit of publicity (element 11) ismentioned somewhat less frequently but members of both groups seem to agree thatit is part of the definition of terrorism. So it is possible to discern a consensus amongacademics who study the subject, to this extent. Terrorism is a politically motivatedtactic involving the threat or use of force or violence in which the pursuit of publicityplays a significant role. This consensus definition stresses terrorism as an activity, amethod of conduct, over the psychological. And, surprisingly, given our own under-standing, neither the distinction between combatants and non-combatants nor

between immediate target and wider audience is mentioned.In addition to the comparison between Schmids respondents and the contribu-

tors to professional terrorism journals, it is essential to examine whether there aresignificant differences among the journals themselves in the way terrorism has beendefined.

Table 2 shows the frequency of definitional elements of the term terrorismaccording to the three journals analyzed in this article. However, to test whether dif-ferences among those three journals are significant, we also performed an analysis of variance (One way ANOVA). Significant differences were found with relation to:threat (F (2, 70) 4.49, p < .05) and method of combat =strategy =tactics (F (2,70) 8.75, p < .001). In terms of threat (m 2.00, sd .00) SCT journal presentsthe highest mean (e.g., highest rate of non-usage of this category). In terms of methodof combat =strategy =tactics (m 1.87, sd .34), Terrorism present the highest mean.

The significance in the threat element resulted from the differences between SCTand Terrorism ( p .01) and between the SCT and TPV ( p .04). The significantdifferences in the tactics element resulted from the difference between the Terrorismand SCT ( p .00) and between Terrorism and TPV ( p .02). To summarize thecomparison of definitional elements among the professional terrorism journals, wemay say that significant differences were found with relation to two categories: threatand tactics . More specifically, SCT did not at all use the threat category in the defi-nition for the term terrorism, while in the case of tactics , Terrorism presented the

highest rate of non-usage of this category.Regarding the various definitions presented in these three journals, it seems that,

despite the need for serious conceptual work, only few articles really grapple with the


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problem of definition. Most of them just place a definition in the text as a matter of formality and, in fact, never pay attention to it again. Nevertheless, we believe thateven though most of the articles used in developing our data file did not grapple withthe problem of definition, it is still very important to examine these definitions asthey appear, mainly from the academic point of view, as vital and relevant literatureon the perception of terrorism.

As in most discussions of terrorism, even those taking place in the academic

domain, we should pay some attention to the point of view of the observer. Whois defining the term and where does s =he come from?

Frequencies of Definitional Elements of Terrorism According to WritersProfessional Affiliation (Figure 1)

Table 2. Frequencies of definitional elements of Terrorism according to the three journals

ElementsTerrorism

N 38

Studies in conflict andterrorism

N 10Terrorism and political

violence N 25

1. Violence 68 % 80% 72%2. Political 63 % 50% 60%3. Fear 21 % 20% 24%4. Threat 50 % 0% 44%5. Victim 16 % 50% 28%6. Tactic 13 % 70% 44%7. Civilians 16 % 30% 28%8. Movement 24 % 40% 32%.

Note : Our survey consists of 73 definitions drawn from 55 articles collected from three journals.

Figure 1. Frequencies of definitional elements of Terrorism according to writersprofessional affiliation. The Survey consists of 73 definitions drawn from 55 articles collectedfrom three journals.


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Frequencies of Definitional Elements of Terrorism According To WritersRegion (Figure 2)

In both cases, we are dealing with academics. A modest six of the seventythreeprofessional journal contributors were non-academics, and only one of Schmidsrespondents identified himself =herself as a journalist; the rest reported variousacademic specialties. Second, we are dealing overwhelmingly with North Ameri-

can and Western European academics. (What seems to us a modest number,only five of the contributors were Israeli.) There were a handful of respondentsin both groups who fell outside the Western orbit, but the preponderance of bothrespondents and contributors was based in these regions, with the United Statesfar and away furnishing the largest contingents. Consequently, we understandthat the consensus over the definition of terrorism among academic specialistsis not universal but one grounded in the view of Westerners, and Americans inparticular.

The question which emerges is whether or not country of origin makes a differ-ence in definition. In order to answer this crucial question, we examined the fre-quencies of definitional elements of terrorism according to writers region.Looking at Figure 2, we may see that country of origin does play a role in theway scholars in the professional journals define the term terrorism. For example,scholars from the Middle East never mentioned (0 % ) the element civilians, whilescholars from Western Europe and North America mentioned this element morefrequently (40 % and 21 % , respectively). In contrast, half of the scholars fromthe Middle East mentioned the element fear in their definitions for the term,while less than a quarter of scholars from Western Europe and North America usedit. However, although there are differences in the definitional elements used by thewriters, as shown from Figure 2, the most popular element among all ethnic groupswas violence. 15

Before offering an assessment of the merits or deficiencies of the consensus defi-nition, we should reflect for a moment on why there were such wide differencesbetween Schmids respondents and the contributors to the professional terrorism

Figure 2. Frequencies of definitional elements of Terrorism according to writers region.


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journals. (This is particularly true since we would expect that there would be someoverlap between the two groups.)

We readily admit to engaging in speculation, but an accounting based on thetimes at which the studies were conducted may be relevant to our understanding.

Schmids survey was carried out in 1985. Respondents would necessarily have basedtheir reactions to terrorism on activities or operations which had occurred earlier,that is from the late 1960s onwards. For the most part, those responding to Schmidsquestionnaire would have obtained their understanding from observing what DavidC. Rapoport has labeled terrorism of the third wave. 16

The events on which these observers would have based their definitions wouldhave encompassed the operations of the left-wing revolutionary groups of LatinAmerica and Western Europe (e.g., the Tupamaros, the Red Army Faction, theRed Brigades) along with such secular nationalist organizations as those linked tothe Palestine Liberation Organization (PLO), the Irish Republican Army (IRA),Basque Homeland and Liberty (ETA), and a long list of others. These were organi-zations which wanted, to use Brian Jenkins famous phrase, a lot of people watch-ing, not a lot of people dead. The type of operations they carried out frequentlyinvolved taking prominent individuals hostage (e.g., Aldo Moro, the former Italianprime minister, Sir Geoffrey Jackson, the British Ambassador to Uruguay, PattyHearst, the newspaper heiress) and holding them for ransom; another method wasseizing members of the public and demanding the release of imprisoned colleaguesin exchange (e.g., 1972 Munich Olympics); and spectacular acts of air piracy in whichthe perpetrators demanded various political concessions in exchange for the releaseof the plane and its passengers.

Third wave terrorism also engendered widespread discussion of such phenomena

as the Stockholm syndrome, brain-washing, the process of hostage negotiations,and the role of the mass media in reporting the events which came to be labeledterrorism. In short, the late 1960s through the early 1980s was a time during whichterrorism seemed to elicit the discussion of psychological issues. Consequently, weshould probably not be surprised that such definitional elements as fear and terroralong with psychological effects and anticipated reactions appear so frequentlyamong the responses to Schmids questionnaire.

Rapoport and other observers have called our attention to the emergence of a New Terrorism. 17 Rapoport, in particular, refers to a fourth wave of ter-rorism which was ignited by the Iranian Revolution of 19791980 but whichreally took hold during the mid-1980s. This new or fourth wave of terrorismhas been dominated by religious concerns, and especially Islamist ones. By con-trast to its predecessor(s), the new terrorists have been willing to inflict masscasualties, kill large numbers of people, and use or attempt to use unconventionalweapons to achieve this end. Furthermore, from an organizational perspective,the new terrorists have tended to rely less on hierarchical and more on hori-zontally articulated and network-based forms than those active in the 1960sand 1970s.

Frequencies of Definitional Elements of Terrorism According To Yearsof Publication (Table 3)

The articles in the three professional terrorism journals which we have usedto compare with the respondents to Schmids 1985 questionnaire clearly cover


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a wider time span than the latter. The questionnaire respondents would havebeen aware of the early phases of the new terrorism, but the experiences onwhich their definitions were based would far more likely have been derived fromthe events of the previous decades or Rapoports Third Wave. The journalcontributions, on the other hand, would include the observations of writerswho were able to look back at the terrorist phenomenon from the 1990s andthe early years of the new millennium, after the new terrorism was well under-way and after some of the dramatic attacks associated with it had already beencommitted.

We interpret this distinction, with some overlap in time for both sets of observersto be sure, to mean that the definitions of terrorism proposed by the journal contri-butors would be less likely to pay attention to such acts as hostage-taking and kid-napping, in which the mental states of the victims and perpetrators would be centralconsiderations. They might also be somewhat less likely to have available variousautobiographies, memoirs, and written reflections that third wave terrorists furn-ished in abundance. Therefore, we suspect that the journal contributors definitionswere less psychology focused than the questionnaire respondents. But this is, of course, a post hoc explanation of our own.

The consensus definition to emerge from our merger of the two academicsources is as follows: Terrorism is a politically motivated tactic involving the threator use of force or violence in which the pursuit of publicity plays a significant role .Is this definition good or bad, helpful or not?

One criterion for evaluating definitions of terrorism has been suggested bySchmid. This standard is whether or not advocates and opponents, authoritiesand their challengers, agree over its merits. 18 Whatever else they disagree over,they would share a common understanding when they use the word terrorism.But even if we remain within the academic domain, it seems unlikely that theconsensus definition will satisfy some professorial critics. They regard the worditself as a snare and a delusion, a semantic device by which the state and itsagents divert attention from their own crimes. For those members of academia

Table 3. Frequencies of definitional elements of Terrorism according to years of publication

19972001N 16

19921996N 11

19871991N 23

19821986N 13

19771981N 10 Element

69% 91% 83% 54% 50% 1. Violence44% 64% 74% 69% 40% 2. Political19% 36% 17% 8% 40% 3. Fear

0% 54.5% 70% 46% 20% 4. Threat37.5 % 36% 26% 8% 10% 5. Victim62.5 % 54.5% 13% 8% 30% 6. Tactic19% 45.5% 22% 23% 0% 7. Civilians31% 54.5% 17% 38.5% 10% 8. Movement

Note : Our survey consists of 73 definitions drawn from 55 articles collected from three journals.


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who wish to express their solidarity with the sufferings of the oppressed, . . . it isclear that so-called terrorism is the logical and just resistance of the peopleagainst state terrorism, capitalism, racism, sexism and imperialism. 19 Terror-ism in and of itself is simply a way of changing the subject by transforming vic-

tims into perpetrators.

Frequencies of Definitional Elements of Terrorism According To WritersAcademic Field (Table 4)

In a sense, academic critics of the very idea of terrorism have a point. What wehave identified as a consensus definition bears a relatively strong resemblance tothe way states, and law enforcement agencies, in particular, regard the phenom-enon. For instance, Hoffman reports that the US Federal Bureau of Investigation

defines terrorism as . . . the unlawful use of force or violence against persons orproperty to intimidate or coerce a Government, the civilian population, or anysegment thereof, in furtherance of political and social objectives. . . .20 AndBritish law (circa 1974) specifies that . . . terrorism is the use of violence forpolitical ends, and includes any use of violence for the purpose of putting thepublic or any section of the public in fear. 21 Whether or not the resemblancebetween the definitions provided by the academic domain and by the state isgood or bad depends upon the point of view of the observer. However, it isrelatively common, in international law, for example, for academic discussionsof legal concepts to find their way into the statute books or into internationalconventions.

Is the consensus definition helpful to those who wish to study terrorism? Byignoring the psychological element, by, in effect, taking the terror out of terrorism,the definition facilitates observation of the phenomenon. It is easier to study politi-cally driven actions than internal mental conditions. But, of course, the consensusdefinition suffers from serious flaws. Sartoris observations make good sense in thiscase: The rules for climbing and descending along a ladder of abstraction are thusvery simple rules . . . .We make a concept more abstract and more general by lesseningits properties or attributes . . .22

The consensus definition is highly general. It seems too vague, in other words. Italso suffers from border problems. The definition includes no distinction between

combatants and non-combatants as targets of violence and, as a consequence, noway of discriminating between terrorism and, for example, guerrilla warfare of thetype US forces are currently experiencing in Iraq. Nor, for that matter, does it permitus to separate the highly planned operations of small, clandestine groups from large-scale attacks carried out by large aggregations intended to attract publicity to acause.

The cost of achieving consensus among academic analysts of terrorism is a defi-nition which has climbed too high on the ladder of abstraction to discriminateamong different types of politically driven violence aimed at achieving publicity.Thus, unless we are willing to label as terrorism a very wide range of violent activi-ties, we may be better off finding another governing concept or looking elsewhere fora definition.


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T a b l e 4

. F r e q u e n c i e s o f d e f i n i t i o n a l e l e m e n t s o f T e r r o r i s m a c c o r d i n g t o t h e w r i t e r s a c a d e m i c f i e l d

E l e m e n t

P o l i t i c a l s c i e n c e

N

2 2

S o c i o l o g y

N

7

C o m m u n i c a t i o n

N

1

P s y c h o l o g y

N

7

H i s t o r y

N

3

I n t e r n a t i o n a l

r e l a t i o n s

N

3

P h i l o s o p h y

N

1

L a w

N

5

O t h e r

N

5

1 . V i o l e n c e

7 3 %

8 6 %

1 0 0 %

4 3 %

6 7 %

6 7 %

0 %

8 0 %

1 0 0 %

2 . P o l i t i c a l

5 9 %

5 7 %

1 0 0 %

2 9 %

6 7 %

6 7 %

1 0 0 %

1 0 0 %

6 0 %

3 . F e a r

1 8 %

2 9 %

0 %

2 9 %

3 3 %

3 3 %

0 %

4 0 %

4 0 %

4 . T h r e a t

4 1 %

7 1 %

1 0 0 %

2 9 %

3 3 %

3 3 %

1 0 0 %

4 0 %

2 0 %

5 . V i c t i m -

4 1 %

5 7 %

0 %

0 %

0 %

0 %

0 %

0 %

0 %

6 . T a c t i c

4 1 %

1 4 %

1 0 0 %

4 3 %

3 3 %

3 3 %

1 0 0 %

0 %

4 0 %

7 . C i v i l i a n s

2 3 %

5 7 %

0 %

1 4 %

3 3 %

3 3 %

0 %

0 %

2 0 %

8 . M o v e m e n t

3 6 %

4 3 %

1 0 0 %

0 %

3 3 %

3 3 %

0 %

2 0 %

0 %

N o t e : O u r s u r v e y c o n s i s t s o f 7 3 d e f i n i t i o n s d r a w n f r o m 5 5 a r t i c l e s c o l l e c t e d f r o m t h r e e j o u r n a l s .

788

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A p p e n d i x A

. L i s t o f t h e a r t i c l e s u s e d i n d e v e l o p i n g o u r d a t a f i l e

N a m e o f a u t h o r

N a m e o f a r t i c l e

Y e a r o f

p u b l i c a t i o n

N a m e

o f j o u r n a l

1 . C o n r a d V

. H a s s e l

T e r r o r : T h e C r i m e o f T h e P r i v i l e g e d A n

E x a m i n a t i o n a n d P r o g n o s i s

1 9 7 7

T e r r o r i s m

2 . B r i a n J e n k i n s

R e s e a r c h N o t e : R a n d s R e s e a r c h o n T e r r o r i s m

1 9 7 7

T e r r o r i s m

3 . T h o m a s M

. F r a n c k

I n t e r n a t i o n a l L e g a l A c t i o n C o n c e r n i n g T e r r o r i s m

1 9 7 8

T e r r o r i s m

4 . A b r a h a m K a p l a n

T h e P s y c h o d y n a m i c s o f T e r r o r i s m

1 9 7 8

T e r r o r i s m

5 . G e r a l d H o l t o n

R e f l e c t i o n s o n M o d e r n T e r r o r i s m

1 9 7 8

T e r r o r i s m

6 . J . K

. Z a w o d n y

I n t e r n a l O r g a n i z a t i o n a l P r o b l e m

s a n d t h e S o u r c e s o f

T e n s i o n s o f T e r r o r i s t M o v e m e n t s a s C a t a l y s t s

o f V i o l e n c e

1 9 7 8

T e r r o r i s m

7 . S t e p h e n S l o a n ,

R i c h a r d K e a n e y &

C h a r l e s W i s e

L e a r n i n g a b o u t T e r r o r i s m : A n a l y s i s , S

i m u l a t i o n s ,

a n d F u t u r e D i r e c t i o n s

1 9 7 8

T e r r o r i s m

8 . F r e d e r i c k J . H a c k e r

T e r r o r a n d T e r r o r i s m : M o d e r n G r o w t h I n d u s t r y

a n d M a s s E n t e r t a i n m e n t

1 9 8 0

T e r r o r i s m

9 . L . C

. G r e e n

A s p e c t s o f T e r r o r i s m

1 9 8 1

T e r r o r i s m

1 0 . G e

r a l d W

. H o p p l e

T r a n s n a t i o n a l T e r r o r i s m : P r o s p e c t s F o r a C a s u a l

M o d e l i n g A p p r o a c h

1 9 8 2

T e r r o r i s m

1 1 . L a

w r e n c e Z e l i c

F r e e d m a n

W h y D o e s T e r r o r i s m T e r r o r i z e ?

1 9 8 3

T e r r o r i s m

1 2 . T e

r r o r i s t R e s e a r c h

a n d A n a l y t i c a l

C e n t e r

F B I A n a l y s i s o f T e r r o r i s t I n c i d e n t s i n t h e

U n i t e d S t a t e s

1 9 8 2

1 9 8 4

T e r r o r i s m

1 3 . B r

e n t L . S

m i t h

A n t i t e r r o r i s m L e g i s l a t i o n i n t h e

U n i t e d S t a t e s :

P r o b l e m s a n d I m p l i c a t i o n

1 9 8 4

T e r r o r i s m

( C o n t i n u e d

)

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16/19

3 0 . D e

n n i s A

. P l u c h i n s k y

T e r r o r i s m i n t h e F o r m e r S o v i e t U n i o n : A P r i m e r ,

a P u z z l e

, a P r o g n o s i s

1 9 9 8

S t u d i e s i n C o n f l i c t

a n d

T e r r o r i s m

3 1 . D a

n i e l B y m a n

T h e L o g i c o f E t h n i c T e r r o r i s m

1 9 9 8


a n d

T e r r o r i s m

3 2 . S e a

n K

. A n d e r s o n

W a r n i n g s V e r s u s A l a r m s : T e r r o r i s t T h r e a t A n a l y s i s

A p p l i e d t o t h e I r a n i a n S t a t e - R u n M e d i a

1 9 9 8


a n d

T e r r o r i s m

3 3 . P e

t e r C h a l k

C o n t e m p o r a r y M a r i t i m e P i r a c y i n S o u t h e a s t A s i a

1 9 9 8


a n d

T e r r o r i s m

3 4 . P e

t e r C

. K r a t c o s k i

T e r r o r i s t V i c t i m i z a t i o n : P r e v e n t i o n , C o n t r o l a n d

R e c o v e r y

2 0 0 1


a n d

T e r r o r i s m

3 5 . N o

e m i G a l - O r

T h e I s r a e l i D e f e n s e F o r c e s a n d U n c o n v e n t i o n a l

W a r f a r e : T h e P a l e s t i n i a n F a c t o r a n d I s r a e l i

N a t i o n a l S e c u r i t y D o c t r i n e

1 9 9 0

T e r r o r i s m a n d

P o l i t i c a l V i o l e n c e

3 6 . R o

b e r t P . H a g e r

L a t i n A m e r i c a n T e r r o r i s m a n d t h e S o v i e t C o n n e c t i o n

R e v i s i t e d

1 9 9 0



3 7 . M a

r t i n H u g h e s

T e r r o r a n d N e g o t i a t i o n

1 9 9 0



3 8 . L e

o n a r d W e i n b e r g &

W i l l i a m L e e E u b a n k

P o l i t i c a l P a r t i e s a n d t h e F o r m a t i o n o f T e r r o r i s t

G r o u p s

1 9 9 0



3 9 . C h

r i s t o p h e r H e w i t t

T e r r o r i s m a n d P u b l i c O p i n i o n : A F i v e - C o u n t r y

C o m p a r i s o n

1 9 9 0



4 0 . M .

W . J

a c k s o n

T e r r o r i s m

, P u r e J u s t i c e a n d P u r e E t h n i c s

1 9 9 0



4 1 . J a c

o b M

. R a b b i e

A B e h a v i o r a l I n t e r a c t i o n M o d e l : T o w a r d a S o c i a l -

P s y c h o l o g i c a l F r a m e w o r k f o r S t u d y i n g T e r r o r i s m

1 9 9 1



4 2 . C h

r i s t o p h e r C

.

H a r m o n

T e r r o r i s m : A M a t t e r f o r M o r a l J u d g m e n t

1 9 9 2



4 3 . A l

e x S c h m i d

T h e R e s p o n s e P r o b l e m a s a D e f i n i t i o n P r o b l e m

1 9 9 2



( C o n t i n u e d

)

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A P P E N D I X A ( c o n t i n u e d

)

N a m e o f A u t h o r

N a m e o f A r t i c l e

Y e a r o f

P u b l i c a t i o n

N a m e

o f J o u r n a l

4 4 . A .

J . J o n g m a n

T r e n d s i n I n t e r n a t i o n a l a n d D o m e s t i c T e r r o r i s m

i n W e s t e r n E u r o p e 1 9 6 8 1

9 8 8

1 9 9 2



4 5 . W a

y n e G

. R e i l l y

T h e M a n a g e m e n t o f P o l i t i c a l V i o l e n c e i n Q u e b e c a n d

N o r t h e r n I r e l a n d : A C o m p a r i s o n

1 9 9 4



4 6 . E h

u d S p r i n z a k

R i g h t W i n g T e r r o r i s m i n a C o m

p a r a t i v e P e r s p e c t i v e :

T h e C a s e o f S p l i t D e l e g i t i m i z a t i o n

1 9 9 5



4 7 . A v

i s h a g G o r d o n

T e r r o r i s m a n d C o m p u t e r i z e d D a t a b a s e s : A n

E x a m i n a t i o n o f M u l t i d i s c i p l i n a r y C o v e r a g e

1 9 9 5



4 8 . A n

d r e w S i l k e

T e r r o r i s m a n d t h e B l i n d M e n s E l e p h a n t

1 9 9 6



4 9 . B r

u c e H o f f m a n

T h e C o n f l u e n c e o f I n t e r n a t i o n a l a n d D o m e s t i c

T r e n d s i n T e r r o r i s m

1 9 9 7



5 0 . M a

t t h e w G

. D e v o s t ,

B r i a n K

. H o u g t h o n

& N e a l A l l e n P o l l a r d

I n f o r m a t i o n T e r r o r i s m : P o l i t i c a l V i o l e n c e i n t h e

I n f o r m a t i o n A g e

1 9 9 7



5 1 . T h

o m a s J . B a d e y

D e f i n i n g I n t e r n a t i o n a l T e r r o r i s m : A P r a g m a t i c

A p p r o a c h

1 9 9 8



5 2 . A r

i e l M e r a r i

T e r r o r i s m a s a S t r a t e g y o f S t r u g g l e : P a s t a n d F u t u r e

1 9 9 9



5 3 . M a

x T a y l o r a n d

J o h n H o r g a n

F u t u r e D e v e l o p m e n t s o f P o l i t i c a l T e r r o r i s m i n E u r o p e

1 9 9 9



5 4 . J e r

r o l d M

. P o s t ,

K e v e n G

. R u b y &

E r i c D

. S h a w

F r o m C a r B o m b s t o L o g i c B o m b s : T h e G r o w i n g T h r e a t

F r o m I n f o r m a t i o n T e r r o r i s m

2 0 0 0



5 5 . C l i

v e W a l k e r

B r i e f i n g o n t h e T e r r o r i s m A c t 2 0 0 0

2 0 0 0



N o t e : O u r s u r v e y c o n s i s t s o f 5 5 a r t i c l e s c o l l e c t e d f r o m t h r e e j o u r n a l s .

792

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Notes

1. Walter Laqueur, Terrorism (Boston: Little, Brown 1977) p.5.2. Martha Crenshaw, The Psychology of Terrorism Political Psychology 21=2 (2000)

p.406.3. David C. Rapoport, The Four Waves of Modern Terrorism in Audrey Cronin and

James Ludes (eds), Attacking Terrorism: Elements of a Grand Strategy (Washington,DC: Georgetown University Press 2004) p. 54; David C. Rapoport Introduction to PartI in David C. Rapoport and Yonah Alexander (eds), The Morality of Terrorism:Religious and Secular Justifications (New York: Pergamon Press 1982) pp.311.

4. The second wave of terrorism, also known as the Anti-Colonial Wave, began in the1920s and crested in the 1960s. All groups in the second wave struggled against colonialpowers that had become ambivalent about retraining their colonial status. The secondwave receded largely as the colonial powers disappeared (Rapoport, The Four Wavesof Modern Terrorism).

5. Rapoport, The Four Waves of Modern Terrorism, p.54. Moreover, as Rapoport

explained, Because the anti-colonial struggle seemed more legitimate than the purposesserved in the first wave, the new language became attractive to potential political sup-porters as well. Governments also appreciated the political value of appropriate lan-guage and began to describe all violent rebels as terrorists. The media, hoping to avoidbeing seen as blatantly partisan, corrupted language further. Major American newspapers,for example, often described the same individuals alternatively as terrorists, guerrillas, andsoldiers in the same account (p.54).

6. See, for example, Boaz Ganor, Defining Terrorism: Is One Mans Terrorist AnotherMans Freedom Fighter? Annual Editions: Violence and Terrorism 03 =04 (Guilford,CT: Dushkin 2003) pp.1119.

7. William Connolly, The Terms of Political Discourse 3rd ed. (Princeton: Princeton Univer-sity Press 1993) p.10. The idea comes from W.B. Gallie, Essentially Contested Conceptsin Max Black (ed), The Importance of Language (Ithaca: Cornell University Press 1969)pp.121146.

8. See, for example, Giovanni Sartori, Social Science Concepts (Beverly Hills: Sage Publica-tions 1984) pp.2835.

9. David Collier and James Mahon, Conceptual Stretching Revisited: Adapting Cate-gories in Comparative Analysis, The American Political Science Review 87:4 (1993) p.846.

10. Alex Schmid, The Response Problem as a Definition Problem, Terrorism and Political Violence 4:4 (1992) pp.725.

11. See, for example, Donatella della Porta, Left-Wing Terrorism in Italy, in MarthaCrenshaw (ed), Terrorism in Context (University Park, PA: Pennsylvania State UniversityPress 1995) pp.105159.

12. Alex Schmid, Albert Jongman et al., Political Terrorism (New Brunswick, NJ: TransactionBooks, 1988) p.28. Schmid is in the process of updating this work, see, The Problem of Defining Terrorism (a paper presented at a conference on Terrorism and SecurityStudies, George Marshall Defense Center, Garmisch Germany, June 28 2004) pp.130.

13. Our research attempted to define terrorism throughout the last two decades. In order todo so, we extensively collected all articles from three central journals ( Terrorism; Terror-ism and Political Violence; Studies in Conflict and Terrorism ) that pertain to the matter athand. Initially, the data we collected were divided into different categories that did notonly include the context of the article but included information about its author, as well.Within the context of the article we examined the subject of the article, its focus, itsresearch method (i.e., qualitative =quantitative case study, qualitative =quantitative com-parative research, qualitative =quantitative theoretical research), its nature (i.e., concep-tual, analytic, theoretical or case-study), and whether it constructs a typology, a theory,or a definition. In addition to the articles context we noted the authors professional


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affiliation, field of education, and place of residence. These categories allowed for a wideobservation of the phenomenon of terrorism. The second step of our research was toextract from the 110 articles found relevant, the various definitions for terrorism. Within55 articles, the 73 definitions that originated were examined according to twenty-twoelements revealed in the work done by Schmid & Jongman (1988). It was this type of incongruity which led to the main question of our research: Are the entire twenty-twoelements needed in order to reach a substantial definition of terrorism or are there defini-tional elements that may have been crucial in the past, but are no longer relevant in thepresent?

14. Schmid reported that, of his 58 respondents, 10 % said they were psychologists (Scmid andJongman, p.207), while 7 of the 55 authors of the journal articles were identified with thatprofession.

15. In order to determine whether differences according to country of origin are significant,we considered performing an analysis of variance (ANOVA, for example). However,due to the small number of scholars in each origin (e.g., two scholars from Africa, threescholars from Australia and six scholars from the Middle East) we were unable to perform

this kind of statistical test.16. David Rapoport, The Fourth Wave: September 11 in the History of Terrorism Current

History (December 2001) pp.419424.17. See, for example, Bruce Hoffman, Inside Terrorism (New York: Columbia University

Press 1999) pp.86129.18. Schmid, The Response Problem as a Definition Problem, p.11.19. Ibid.20. Hoffman, p.38.21. Schmid, The Response Problem as a Definition Problem, p.9.22. Giovanni Sartori, Concept Misinformation in Comparative Politics, The American

Political Science Review LXIV =4 (December 1970) p.1041.


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