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With regard to victims of discrimination/vicarious retribution, the EU recognizes that terrorism and the fight against terrorism have fostered discrimination, stigmatization, exclusion and vicarious retribution against minority communities living in the West, especially against immigrants of Arab-Muslim appearance152.

In response to this phenomenon, several EU instruments153 recognize the need to protect minority communities against the risk of reprisals following terrorist attacks, pointing out that this phenomenon is precisely sought after by the terrorist strategy aimed at reinforcing social divisions and creating a climate of interethnic/religious hatred conducive to violent radicalization. Accordingly, the EU has repeatedly encouraged Member States to adopt measures aimed at promoting intercultural dialogue, tolerance, integration, mutual respect and equal opportunities for all, while combating racism, xenophobia and assimilations of terrorism with the Muslim community, stressing that these conditions favour radicalization154. The European Council also recalls that counter-terrorism measures should not lead to stigmatization, discrimination or xenophobia155.

Regarding the issue of discrimination in counter-terrorism policies, the Preamble of the 2017 Directive on combating terrorism156 and the 2018 Resolution of 12 December on findings and recommendations of the Special Committee on Terrorism157 state that the adoption and implementation of counter-terrorism measures must exclude any form of racism or discriminatory treatment. The Parliament also stresses that political discourse invoking the terrorist threat should avoid undermining social cohesion and polarisation within societies158. It calls on the Member States to implement the Directive and Framework Decision on Racism and Xenophobia, by taking effective measures to counter hate speech inciting to terrorism or hate crimes159. The Parliament also insists on the necessity to guarantee the freedom of religion, while encouraging inter-religious and cross-cultural dialogue as well as cooperation with religious communities and local authorities to prevent radicalisation160.