Understanding the Prevent Duty: A Guide for Teachers and Carers

July 17, 2024

Introduction

There have been 5513 terrorist incidents between 1970 and 2020 in the UK (Global Terrorism Database), and the current terrorism threat level is substantial, meaning a terrorist attack is likely (MI5). Terrorist attacks can have devastating impacts on victims, families, communities and society, and extremism and radicalisation in communities are real threats.

Children and young people are particularly vulnerable to radicalisation, extremist ideologies and being drawn into terrorism, as they are easily influenced and impressionable, especially those with low self-esteem or are being bullied or discriminated against. According to the Prevent Duty guidance, many children and young people make up Channel cases, a voluntary, confidential, early intervention programme. There has also been an increase in learners arrested for terrorism-related offences.

The UK Government introduced Prevent to safeguard people from radicalisation and extremism. The Prevent Duty makes it a legal requirement for local authorities, educational providers, the police, health providers and criminal justice agencies to prevent people from becoming terrorists or supporting terrorism.

According to statistics from the Home Office, in the year ending 31^st of March 2023, there were:

6,817 referrals to Prevent, an increase of 6.4% compared to the previous year (6,406).
2,684 (39%) education sector referrals. In fact, education referrals have accounted for 33% of all those recorded since 2015/16.
2,203 referrals for individuals aged 15 to 20 (largest proportion).
2,119 referrals for those aged 14 and under (second largest proportion).

As education and children and young people have some of the highest referrals, it is vital that childcare and early years providers, teachers and other carers, e.g. in care homes and hospitals, can spot the signs of radicalisation and understand their responsibilities under the Prevent Duty. This blog post aims to provide a comprehensive guide to understanding the Prevent Duty for teachers and carers.

Background on the Prevent Duty

Section 26 of the Counter-Terrorism and Security Act (CTSA) 2015 established the Prevent Duty to stop people from becoming terrorists or supporting terrorism. It is one objective of the UK Government’s overall counter-terrorism strategy, CONTEST. The other three objectives are:

Pursue – to stop terrorist attacks.
Protect – to strengthen our protection against a terrorist attack.
Prepare – to mitigate the impact of a terrorist attack.

Prevent aims to:

Tackle the ideological causes of terrorism.
Intervene early to support people susceptible to radicalisation.
Enable individuals who have already engaged in terrorism to disengage and rehabilitate.

It is designed to support those susceptible to radicalisation similarly to how they would be supported under safeguarding processes. It does not focus on specific individuals, groups or communities.

There is statutory Prevent Duty Guidance from the Home Office, meaning that duty holders must comply. It was issued under Section 29 of the Counter-Terrorism and Security Act 2015 and came into force on the 31^st of December 2023, when it replaced the 2015 guidance. There is separate guidance for Scotland here, and the Prevent Duty does not apply in Northern Ireland.

The Prevent Duty works alongside safeguarding duties, and specified authorities must also comply with other relevant legislation, such as the Terrorism Act 2006, the Data Protection Act 2018, the Equality Act 2010 and the Public Sector Equality Duty.

Specified authorities have legal obligations under the Prevent Duty. It will apply to the following:

Educational providers/institutions, e.g. nurseries, schools, colleges and universities.
Health providers, e.g. NHS trusts.
Local authorities, e.g. local councils and service providers.
The Police.
Criminal justice agencies, e.g. prisons and probation services.

Specified authorities include people, organisations and institutions listed in Schedule 6 of the Counter-Terrorism and Security Act 2015.

These specified authorities must have:

“Due regard to the need to prevent people from becoming terrorists or supporting terrorism.”

The duties of specified authorities come under the following sections in the statutory guidance:

Leadership and partnership – develop and maintain appropriate leadership and partnership working, e.g. having a designated leader overseeing the delivery of Prevent and working with local Prevent leads, the police and local authorities.
Capabilities – develop and maintain appropriate capabilities for understanding risk, managing risk and sharing information.
Reducing permissive environments – limiting exposure to radicalising narratives and creating an environment where radicalising ideologies are challenged.
Monitoring and assurance – maintaining appropriate records, e.g. training and referrals, to show compliance with the Prevent Duty.

There is also sector-specific guidance for each specified authority in the statutory guidance that duty holders should read alongside safeguarding guidance.

Understanding Radicalisation and Extremism

The Prevent Duty has a vital role in preventing radicalisation and extremism. The Prevent Statutory Guidance Glossary of terms defines radicalisation as:

“The process of a person legitimising support for, or use of, terrorist violence”.

Radicalisation can lead to supporting terrorist activities or groups by developing extreme views or beliefs. In fact, terrorism begins with radicalisation. It can affect anyone regardless of their background, and the process can take hours, days, months or even years. However, certain push factors can make individuals more vulnerable to becoming radicalised.

According to the Department for Levelling Up, Housing & Communities, extremism is:

“The promotion or advancement of an ideology based on violence, hatred or intolerance, that aims to:

Negate or destroy the fundamental rights and freedoms of others; or
Undermine, overturn or replace the UK’s system of liberal parliamentary democracy and democratic rights; or
Intentionally create a permissive environment for others to achieve the results above.”

It is important to note that extremism is different from terrorism, as not all extremist groups will commit terrorist or violent acts.

Ideology is defined as:

“A set of beliefs or narratives for the purpose of supporting a particular worldview. An extremist ideology is one that is intolerant of generally accepted values of society” (Prevent training).

Various types of ideologies exist, such as Islamist, extreme right-wing, left-wing, anarchist and single-issue ideologies. Extremist ideologies can be appealing to vulnerable individuals as they are often persuaded by various incentives that meet their needs, whether physical, emotional or psychological. These are known as pull factors.

Some examples of push, pull and personal factors (Vergani, et al. 2018) that could increase the risk of radicalisation and extremism include:

Personal

Mental health problems, e.g. depression.
Special educational needs and disabilities (SEND).
Trauma, abuse or bullying.
Excessive internet use.
A lack of positive role models.
Issues at home.
Struggling with identity.
Poor understanding of other cultures.
Exposure to extremism.
Feeling insignificant and marginalised.
Being a victim or witness of crime.
Personality traits.
Adverse childhood experiences.

Push

A need for meaning, identity, belonging and purpose.
Feelings of grievance, anger, frustration and injustice.
Feeling lost, insignificant, invisible and confused.
Susceptibility to being influenced or controlled.
‘Them and us’ thinking.
A desire for status, i.e. to dominate and control others.
Inequalities, marginalisation and discrimination.

Pull

A fulfilling social network.
Identification of an enemy or cause of injustice.
Provocative & persuasive propaganda.
A plan of action to correct injustices.
Excitement and adventure.
Material and/or spiritual reward.
Making an impact.

Various circumstances, needs, and factors may contribute to radicalisation, and it is a complex process, but here are some examples:

Social – the risk of radicalisation depends on social influences, such as family, friends, peers and in-person or online communities. They have a significant role in reinforcing or challenging extremist views and beliefs. Some children and young people are radicalised within their family unit.
Economic – poverty, unemployment and socioeconomic disparities can create a breeding ground for extremist ideologies and radicalisation. Individuals may seek like-minded communities if they feel excluded, oppressed or marginalised from society, making them vulnerable to recruiters and groomers. Seeking radical ideologies and solutions can make them feel empowered.
Political – individuals can become radicalised if political instability exists and they believe their political views and beliefs are not adequately represented or addressed. Some may feel aggrieved about the actions or inaction of governments and feel there are injustices.
Religious – an individual’s religious beliefs can lead to religious extremism when they believe their intolerance and violence are justified. Children can be raised in extreme religious environments, or individuals can be indoctrinated or recruited by fundamentalists.
Ideological influences – there can be many types of ideologies, some of which can be extreme, as they advocate intolerance and violence. Exposure to extremist ideological influences, such as nationalistic and religious, can lead to radicalisation.

Extremists can use many methods to identify and target susceptible individuals, such as:

Grooming (taking advantage) face-to-face or online, especially on social media platforms.
Emotional and psychological harm.
Using violent images, writing or videos.
Exploitation, including sexual.
Giving extremist ideological opinions or using hate speech.
Intolerant to differences, e.g. religious, cultural or protected characteristics.

Children and young people who have low self-esteem and are victims of bullying and discrimination are at an increased risk of being radicalised, and extremists often target them (NSPCC), especially online.

ACT Early has further information on the risks of radicalisation here.

Recognising Signs of Radicalisation

Every person is unique, and the signs of radicalisation may differ depending on the individual and situation. Radicalisation feeds off people’s emotions. It can occur offline (i.e. in-person) or online, and behavioural indicators, changes in attitudes or beliefs, and social media activity may raise concerns.

Some of the signs teachers and carers should look out for include (this list is not definitive or exhaustive):

Justifying using violence to remedy societal issues.
Changes in appearance or dress style to fit in with extremist groups.
Isolating themselves from family or friends.
Using certain terrorist organisation’s symbols or wording.
Unwilling to engage with those who they view as being different.
Downloading or accessing extreme material or propaganda online.
An excessive amount of time spent online.
Not wanting or willing to talk about their views and opinions.
Having an angry or obsessive desire for ‘something to be done’ or change.
Increasing anger, frustration and aggression.
Sharing extreme opinions and pictures of weapons on social media.
Being disrespectful and abusive towards others.
Becoming more argumentative when expressing their views.
Having more than one online identity.
Becoming more secretive and refusing to speak about their online activity.
Speaking like they are reading from a script, i.e. using specific phrases and new vocabulary.
Changing friends.

It is important to note that these signs may be for other reasons, so it is vital not to jump to conclusions. However, it is important to raise any concerns and act early. Recognising the signs of radicalisation, early intervention and reporting concerns to the appropriate authorities is of the utmost importance, as terrorism has a devastating impact on victims, families and communities. It prevents the person from becoming radicalised and engaging in extremist activities, thus protecting the individual and others from potential danger and harm.

Roles and Responsibilities of Teachers and Carers

Teachers and carers have a role in fulfilling the Prevent Duty and safeguarding students and individuals from the risk of radicalisation. Some of their responsibilities include:

Understand the Prevent Duty – to be aware of their obligations and what they must do to comply with the law, similar to safeguarding requirements. They should undertake the required training to gain the necessary knowledge to fulfil their responsibilities.

Integrate the Prevent Duty into safeguarding policies – to embed it into overall safeguarding policies. Teachers and carers must follow these policies and any associated procedures and protocols. In fact, it sits alongside their safeguarding duties.

Assess the risks – to assess the likelihood and consequences of individuals being drawn into terrorism or supporting terrorism. Some examples of risk assessment templates are here.

Be aware of the signs – of radicalisation and extremism to intervene early and protect those involved. They should also understand why individuals become radicalised and who may be susceptible.

Increase resilience – within the classroom environment or other setting, e.g.:

Build resilience and Prevent into the curriculum.
Foster an inclusive and safe environment where they can discuss controversial topics and ideas freely.
Encourage individuals to think critically, respect other viewpoints and make reasoned arguments.
Promote fundamental British values, including democracy, the rule of law, individual liberty, and mutual respect and tolerance.

Cooperate with other agencies – to coordinate plans, responses and actions. Teachers and carers may need to work in partnership with local authorities, the police, social services and health services.

Provide support – to those susceptible to radicalisation to prevent them from getting involved in terrorism or terrorist-related activity.

Observe and monitor – to identify any concerning behaviour or behavioural changes. Teachers and carers will be familiar with the individuals they are teaching and caring for and should be able to spot if something is of concern. Individuals should also be kept safe when accessing the internet.

Report – Prevent Duty does not have mandatory reporting, so teachers and carers should follow their safeguarding policies and procedures. Teachers and other staff will typically report to their designated safeguarding lead (DSL), but they may also talk to a colleague or a Prevent lead. Carers may report to their equivalent, line manager, or local authority children’s social care team.

Teachers and carers should not be concerned about Prevent and their responsibilities as it relates to safeguarding, which they should be familiar with in their roles. They can also follow the notice, check and share process, which is explained in further detail here. If there is an immediate danger, they should dial 999.

It is vitally important to promote fundamental British values, including democracy, the rule of law, individual liberty, and mutual respect and tolerance, as it increases resilience. It promotes an inclusive society where everyone is respectfully treated, regardless of their backgrounds. It also makes individuals aware of other’s rights and responsibilities, and young people leave education prepared for life in modern Britain.

Educate Against Hate has further information on teacher’s responsibilities here. There is the ACT Early website, which teachers and carers can access before making a referral to Prevent.

Engaging with Pupils, Students, and Service Users

To help tackle extremism and radicalisation, teachers and carers should engage with pupils, students, and service users on sensitive and relevant topics. Discussing these issues can prompt strong emotional responses, e.g. anger and distress, so it is vital to have some strategies and here are some examples that may help:

Create a safe environment

Teachers and carers should foster an inclusive, safe and respectful environment where they celebrate diversity and uniqueness so everyone feels a sense of belonging.
Individuals should feel comfortable to express their views and opinions without worrying about repercussions or being treated differently.

Build trust and mutual respect

Teachers and carers should openly and honestly communicate with pupils, students and service users to build trust and promote positive relationships.
They should encourage diverse opinions and perspectives to be understood and respected and for boundaries to be maintained.

Plan appropriately

Review the curriculum and syllabus for any sensitive topics and keep up-to-date on current affairs in case any pupil, student or service user wants to discuss any issues they see on social media or the news.
They should ensure they have appropriate content and resources to facilitate discussions but try to choose ones that minimise distress.
Their teaching and learning practices and environment should support critical thinking where they can effectively address controversial issues.
They should also let individuals know where sensitive topics are in the syllabus so they know when to expect them to occur.

Inform and explain

Letting pupils, students and service users know when sensitive topics will arise can give them early warning to discuss any issues beforehand.
When covering a sensitive topic, it is important to acknowledge why it may be hard to discuss and why it is vital to talk about it. Introduce some rules, e.g. no arguing or interruptions.

Actively listen

To effectively engage with individuals, actively listen when they express their views, meaning listening intently and empathetically to what they say, demonstrating attentiveness and understanding.
Active listening and empathy help build rapport, trust and positive relationships over time.
Challenge stereotyping, biases and misinformed views, especially if targeting or supporting certain groups.

Adapt to unexpected situations

Prepare for people’s reactions to sensitive topics, as they can be unpredictable.
If a pupil, student or service user wants to discuss a sensitive topic out of the blue and a teacher/carer is not ready to manage it, they could ask them to rearrange for another time in a different location, i.e. out of the classroom.

Diffuse conflict

Some discussions on sensitive topics can get heated, and conflict may occur. It is important to encourage individuals to actively listen to one another, have empathy and avoid stereotypes.
Teachers and carers should look for signs of potential conflict, e.g. strong emotional responses, and where individuals are trying to dominate discussions.
It may be necessary to pause discussions, have short breaks and continue when individuals are not so emotionally charged.
Steering conversations to find common ground can help.

The University of Liverpool has further information on some of these strategies here. Teachers and carers should also look after their own well-being when discussing sensitive topics and seek support where necessary.

The most appropriate approach for discussing complex issues and promoting critical thinking and resilience will depend on the age of the children, young people and service users, type of education and setting. Teachers and carers should:

Follow the Government’s statutory guidance, e.g. EYFS early years.
Use age-appropriate language, information and concepts.
Ask open-ended questions and provide appropriate feedback.
Provide examples and context to increase understanding.
Provide real-world scenarios and projects, which require them to analyse, make reasoned arguments, collaborate and find solutions,
Be honest and transparent.
Encourage individuals to be empathetic, think critically, ask questions and consider various views and perspectives.
Help individuals to develop coping strategies and skills, such as problem-solving.
Avoid causing distress when addressing any problems.
Foster an open dialogue where individuals can explore situations and listen to each others’ perspectives.
Promote community cohesion by creating an inclusive and safe environment where diversity is celebrated, discrimination is not tolerated, and extremist narratives are challenged.

Here are some links to further information and examples of resources for discussing complex issues and promoting critical thinking and resilience:

Early years (0-5)

School-aged

CPD Online College – Building Resilience in the Classroom.
Education4Health – Resources – have many resources, including a resilience toolkit.
Teach First – How to have difficult conversations with your pupils.
The Institute of Health Equity – Building Children and Young People’s Resilience in Schools.
The PSHE Association – Handling complex issues and creating a safe learning environment.

Older teen/young adult

General

Greenwich Safeguarding Children Partnership – Carrying out Difficult Conversations with Children and Young People.
Twinkl – Helping Your Child with Critical Thinking.
Twinkl – has various resources for teachers on Prevent, radicalisation and extremism for different ages (may need an account).
NSPCC Learning – How to have difficult conversations with children.
WorthIt – Building Resilience in Young People.
YoungMinds Resources.

Training and Continuing Professional Development (CPD)

Training and Continuing Professional Development (CPD) is crucial for teachers and carers, especially when understanding and implementing the Prevent Duty. It is also vital for the following reasons:

It is a requirement in the capability sections of the Prevent Duty statutory guidance.
It enhances teaching and learning practices, helping foster an effective, safe and comfortable learning environment where people can thrive and reach their full potential.
It provides opportunities for new skill development and enables teachers and carers to keep up-to-date on best practices to feel confident and well-equipped to fulfil their safeguarding and Prevent responsibilities.
It allows teachers and carers to enhance their knowledge and understanding of radicalisation, how to spot the signs and find appropriate ways to respond.
It can prevent individuals from radicalisation and being drawn into terrorism.

The Home Office provides free Prevent Duty training for the relevant sectors and others. The courses they offer include:

Awareness course – for those new to Prevent.
Referrals course – primarily for those responsible for making Prevent referrals and need more in-depth training, e.g. Designated Safeguarding Leads (DSL), Prevent professionals or equivalent roles. It is recommended this training is updated at least every two years.
Channel or Prevent Multi-Agency Panel (PMAP) course – for those involved with Channel (England and Wales) or Multi-Agency Panel (PMAP) (Scotland).
Refresher awareness course – for those who have completed the awareness course but need a refresher to keep their knowledge and skills up to date.

These courses are accessible from the Home Office website: https://www.gov.uk/guidance/prevent-duty-training.

Local authorities may also offer training and resources to help teachers and carers understand the Prevent Duty and their responsibilities. They can find their local council at https://www.gov.uk/find-local-council.

Some further resources provided by local authorities, government agencies, and professional organisations include (this list is not exhaustive):

Depending on where teachers and carers work and who they work with, Prevent Duty guidance should also be read alongside the following:

Working in Partnership

Collaboration and partnership working have an essential role in addressing radicalisation and extremism. According to the Prevent Duty guidance:

“Prevent requires a multi-agency approach to support people susceptible to becoming terrorists or supporting terrorism.”

“Effective partnership is a key component of delivering Prevent”

Multi-agency means cooperation and collaboration between several organisations. It is an approach that is widely used in safeguarding and is crucial in addressing issues relating to radicalisation, extremist ideologies and terrorism. It involves forming partnerships between various groups, and regarding the Prevent Duty, it can include:

Local authorities – lead Channel panels. They require cooperation if they receive a referral. Multi-agency partners attend panels, such as the police, education professionals, health services, housing and social services. They also have Prevent leads, and teachers and carers may need to work with them.
The Police – are key partners on local authority-chaired Channel panels and work closely with Channel partners to help progress Channel actions. Police Prevent officers can work with educational providers to provide appropriate support to deter children and young people from extremism. Teachers and carers may need to contact the police if there is an immediate risk.
Social services – provided by local authorities or contractors. They have responsibilities under Prevent and attend Channel panels. They may work with teachers and carers in educational settings to help prevent the risks of children and young people becoming terrorists or supporting terrorism. They may also intervene if there are any issues at home.
Community organisations – play a key role in partnerships and may include faith groups, women’s groups, voluntary groups, charities and youth groups. Teachers and carers may need to liaise with various organisations to fulfil their Prevent duties.

Multi-agency partners meet to discuss referrals, conduct risk assessments and agree on a tailored support solution for the individual. It ensures the response to any concerns or reports is coordinated and effective. They may call upon teachers and carers to give information to the Channel panel. Teachers and carers may also provide support to the individual.

Collaboration and partnership are vital as they require a holistic (entire) approach to address radicalisation; one agency cannot tackle this complex area alone. A multi-agency approach can be challenging, but it has many benefits and can prevent radicalisation and extremism through accessible information and thorough assessment.

Concerns and referrals are typically managed by designated safeguarding leads and multi-agency safeguarding hubs (MASH), and their roles are as follows:

Designated safeguarding leads

They usually oversee Prevent delivery and safeguarding in schools and other educational settings and allocate resources.
They make referrals and work with Channel panels.
They support, direct and coordinate staff on safeguarding.
CPD Online College has further information on the role here.

Multi-agency safeguarding hubs (MASH)

It brings various agencies together to safeguard vulnerable children and adults.
These agencies can include health, social care, police, housing, education, probation and youth offending services.
It enables these agencies to combine their knowledge, share information, communicate and make decisions in real-time.
Through better coordination, they can make correct, efficient and appropriate decisions and agree on interventions
It is the initial point of contact for concerns, help or support.

Supporting Vulnerable Individuals

Just because a person is vulnerable does not automatically make them susceptible to radicalisation or extremism. However, in some cases, vulnerabilities can be linked to susceptibility. Vulnerable can mean an individual requires additional support, care or protection because of:

Their age.
A disability.
Special educational needs.
The risk of abuse or neglect.

It is vital to support individuals who may be vulnerable to radicalisation or extremism. They may feel they are missing emotional support, making it easier for recruiters and groomers to manipulate their vulnerabilities. Individuals can be supported in the following ways.

Offering pastoral support – provide emotional support to individuals and advice, information and guidance where needed. It is about ensuring the physical, mental and emotional well-being of individuals. Often, educational institutions will have pastoral care plans, especially for those with special educational needs and disabilities (SEND).
Signposting to appropriate services – to maintain boundaries and support individuals, teachers/carers may signpost them to other safeguarding services and mental health services. It ensures that professionals do not step out of the requirements of their role and that pupils, students and service users get the support that will help them.
Implementing targeted interventions – to safeguard and support those at risk of radicalisation or helping those already engaging in terrorism to disengage and rehabilitate. Various agencies will decide on the best course of action after assessments and discussions. Teachers and carers may have a role in helping to implement interventions.

It is crucial for teachers and carers not to raise concerns with the individual, as it requires a team approach. However, they can speak to the individual about their behaviours, which can help gather information.

Teachers and carers have a duty of care when working with vulnerable individuals, meaning they must protect them from harm and promote their well-being. They must consider how they can safeguard pupils, students and service users from radicalisation, but must be mindful of various ethical considerations regarding safeguarding and the Prevent Duty, such as:

Be aware of their own biases – they should be mindful of how their own biases may influence their beliefs, judgements and decisions. They should only raise concerns if they are genuine and not do so out of malice or to target specific individuals or groups. They should also ensure they apply the Prevent Duty consistently and appropriately, regardless of the type and form of extremist ideologies and concerns.
Not jumping to conclusions – behavioural changes are not always due to radicalisation, so teachers and carers must avoid assumptions and understand the reasons behind the changes to gain context. Jumping to conclusions can erode trust and be damaging to the individuals involved.
Sharing information – they have a duty to share information for safeguarding purposes. Confidentiality and privacy can be overridden if there is a risk to the individual and others or if it is in the public interest. However, they still have duties under data protection laws, e.g. the Data Protection Act 2018 (DPA 2018) and the General Data Protection Regulation (GDPR), when sharing information and reporting their concerns.

Teachers and carers must balance safeguarding and respecting individuals’ rights, privacy, confidentiality and freedoms, as their aim should be to protect the person. When sharing concerns, they must ensure:

It is informed.
It is with good intentions.
It is considered and proportionate.

Appropriate training can help teachers and carers consider their ethical obligations and duty of care relating to safeguarding and the Prevent Duty.

Conclusion

The overall aim of the Prevent Duty is to stop people from becoming terrorists or supporting terrorism. Teachers and carers are often best placed to spot the signs of radicalisation, as they are on the frontline of their professions and will interact with pupils, students and service users regularly.

Teachers and carers have legal responsibilities under the Prevent Duty alongside their safeguarding duties. They should understand their responsibilities and follow the relevant policies, procedures and protocols. They should always trust their instincts and be confident to know what actions to take if they have concerns. Training and continuing professional development (CPD) are vital in ensuring they have the capabilities, can fulfil their role under the Prevent Duty and safeguard individuals from radicalisation and extremism.

Terrorism can have a devastating impact on everyone involved. Therefore, early recognition, intervention and support are fundamental to prevent harm and hopefully keep individuals out of the criminal system. Teachers and carers should remain vigilant, informed, and proactive in promoting safety and well-being in the settings in which they work.