A decade ago, the world rightly stood in solidarity with the United States in the face of the 9/11 terrorist attacks. The story of how the Bush Administration squandered that solidarity through Guantanamo, torture and the invasion Iraq is well known. Less well known is how the United Nations also lost its opportunity to unite world in principled counter-terrorism.
The 9/11 attacks provided the U.N. with an unparalleled opportunity to forge international agreement on a definition of terrorism. Whatever previous disagreements there were about freedom fighting and state terrorism, it was clear that the 9/11 attacks constituted terrorism. The killing of innocent people not engaged in hostilities in an armed conflict was terrorism; it did not matter whether they were in the planes, the World Trade Centre or the Pentagon.
On September 28, 2001, the Security Council demanded that all states enact tough counter-terrorism measures under its mandatory powers to enforce international peace and security. The Security Council offered no guidance on the definition of terrorism. It failed to so, even though a 1999 Convention on the Suppression of Terrorism Financing previously included a restrained but principled definition: the intentional killing or injuring of those not engaged in armed conflict in order to intimidate a population or compel governments to act.