This article serves as the introduction to a Special Issue of the European Journal of International Security titled ‘What the War on Terror Leaves Behind’. In it, we seek to contextualise and summarise the diverse contributions of this collection, which is animated by four overarching questions: (i) More than 20 years after the attacks of 11 October 2023, is the War on Terror now, finally, over? (ii) What, if any, legacies remain from the post-9/11 way of thinking and doing counterterrorism? (iii) What is the significance of the War on Terror’s legacies or absence thereof? and, (iv) How do the War on Terror’s impacts and effects sit within other historical contexts and (dis)continuities? The article begins with a brief overview of some of the conceptual and political ambiguities of the War on Terror itself, before situating the issue in relation to issues of continuity and change anticipated by the four questions above. A second section then explores the urgency of these questions for academic debate, and in the ‘real world’ of international security as experienced by states, communities, and other subjects. A third section then summarises the argument and contributions of the articles in the issue –highlighting the lack of agreement on key issues within these debates.

This article critically examines the major shortcomings in multi-country security investments in East Africa during the war on terror. It argues that these investments have not only failed to adequately recognise African contexts but also falls short of recognising the agency of local communities in counterterrorism efforts. Drawing on critical terrorism and security studies, as well as excerpts from interviews with practitioners in Kenya, the article identifies gaps in the prevailing approach that treats Africa as a unitary entity and critiques the notion of universality of knowledge ingrained in these interventions. By taking a decolonial perspective, the article challenges some prevailing constructions about Africa, linked to the war on terror, as the source of this notion of universality of knowledge. By highlighting the connection of counterterrorism strategies to coloniality and the systemic exclusion of subaltern voices, the discussion suggests that a more contextually informed approach is a precursor to envisioning Africa positioned beyond the war on terror.

This article contributes to an ‘historical turn’ in security scholarship. It addresses imbalance in security studies’ attention to historical empirics, and argues against notions of temporal disjunct prevalent within the discipline. I employ a genealogical framework to clarify the interpellation of past and present; and I introduce the ‘conceptual archive’ as a lens for pursuing that interpellation in research. My thesis on the ‘conceptual archive’ represents a twofold contribution. Firstly, a conceptual contribution: I advance the ‘conceptual archive’ as a way of thinking about past-present interpellation (specifically, existing conceptual logics’ remodelling in arguments justifying new practice). Secondly, an analytical contribution: I propose the ‘conceptual archive’ as a tool for doing genealogy (a research programme with historicising promise, but one suffering nebulous operationalisation at present). I use the field of terrorism studies as an entry-point to these contributions: adopting a mixed-methods research design to trace British counterterrorism practices’ roots within an ‘archive’ of logics on Northern Ireland. I find 1970s British governments remodelled long-standing ‘archival’ vocabularies in their arguments for new security provisions: framing exceptional practices according to an accepted fabric of concepts.

The conflicts in Iraq and Syria have led to concerns in the West over ‘foreign fighters’. Although states are anxious about the role these individuals play in the conflicts they join, their primary concern relates to the perceived ‘terrorist’ threat they pose on their return. This fear has led to an evolution in the international policymaking arena, with foreign fighters now often referred to as ‘foreign terrorist fighters’ (FTFs). A Critical Theory-inspired immanent critique is offered to highlight various problems that exist with the FTF term and to argue policymakers should resist its use. The article demonstrates the importance of language by showing how the invocation of the FTF threat has strengthened the ongoing development of globally coordinated counterterrorism action. Specifically, it argues UN Security Council Resolution 2178, agreed in 2014, generates a legal obligation upon UN member states to implement new counterterrorism laws at national level to combat the perceived threat from FTFs. The article highlights the negative effect these laws have on human rights. It is argued institutions like the UN need to ensure new counterterrorism legal instruments are built from a human rights rather than security-first perspective if commitments to human rights in transnational counterterrorism are to be fully realised.

Endless armed conflicts against terrorist groups put civilian populations at risk. Since France has been involved in the Sahel from 2013 onwards, transnational non-international armed conflicts (NIACs) of extended geographical and temporal scope against groups designated as terrorists are not a US exception anymore. NIACs against terrorist groups, conducted not only by the United States but also by France, persist and have been reconfigured around threat anticipation. How can anticipatory warfare be best constrained? This article argues that it can be best done through more constraining rules regulating target selection in NIACs and, in particular, by redefining the notion of continuous combat function (CCF). Many elements explored in this article indicate that the United States and France select targets that they pre-designate as terrorists, before these targets are engaged in hostilities. Instead of responding to the observed participation of these individuals in hostilities, strikes are based on contextual and behavioural elements ahead or outside of such moments. This paper argues that when war consists of threat anticipation, it becomes very extensive and particularly risky for civilians. Furthermore, recent State practice in the counterterrorism context reveals the pitfalls of the notions of direct participation in hostilities and CCF as defined in the 2009 International Committee of the Red Cross Interpretive Guidance. Outside this context, the interpretations proposed in the Interpretive Guidance might seem sufficient to constrain target selection processes and to protect civilian populations. However, when applied to armed conflicts that are driven by threat anticipation, the pitfalls of these interpretations emerge. I formulate a critique of these interpretations as being partly responsible for anticipatory warfare and propose an alternative theory for the CCF test.

Studies of fake news have historically suffered from being primarily Western-centric and focusing on “news” emanating from formal media outlets. The Sahel has generated its own unique version of fake news, the authors refer to as Afrancaux News. Using nationwide public opinion surveys in Burkina Faso, Mali, and Niger, open-source online forum ethnographic research, and postcolonial epistemological predispositions, the authors suggest that although other historical instantiations exist, the most prominent contemporary example of Afrancaux News can be seen in the fake news stories related to the French counterterrorism presence in the Sahel.