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Sanctions against terrorism

The EU has imposed sanctions against individuals, groups and entities involved in terrorist acts, including ISIL/Da'esh, Al-Qaida, Hamas and the Palestinian Islamic Jihad.

EU terrorist list

The EU first adopted restrictive measures against individuals and entities involved in terrorist acts in December 2001, in the wake of the terrorist attacks on 11 September of that year.

The EU list was established to implement UN Security Council resolution 1373 (2001). To that end, the EU adopted the:

  • Council common position 2001/931/CFSP on the application of specific measures to combat terrorism
  • Council regulation (EC) 2580/2001 on specific restrictive measures directed against certain persons and entities with a view to combating terrorism

Who is in the terrorist list?

The EU terrorist list includes individuals, groups and entities involved in terrorist acts. This means:

  • individuals who commit, or attempt to commit, terrorist acts or who participate in, or facilitate, the commission of terrorist acts
  • groups and entities owned or controlled directly or indirectly by such individuals
  • individuals, groups and entities acting on behalf of, or under the direction of, such individuals, groups and entities

The EU can also target leading members of EU-listed groups and entities, as well as persons, groups and entities associated with those involved in terrorist acts (including through financing, training or recruitment).

There are 13 individuals and 23 groups and entities on the so-called 'EU terrorist list'. These are active both within and outside the EU.

The list includes for example the Iran's Islamic Revolutionary Guards (IRGC), The Base and Sendero Luminoso.

What are the sanctions?

All individuals, groups and entities on the terrorist list are subject to measures related to:

  • the freezing of funds and financial assets
  • police and judicial cooperation in criminal matters

In addition, no funds, financial assets and economic resources can be made available to them, either directly or indirectly. Individuals in the list can also be subject to a travel ban.

What constitutes a terrorist act?

According Council common position 2001/931/CFSP, terrorist acts are intentional acts which may seriously damage a country or an international organisation, where committed with the aim of:

  • seriously intimidating a population
  • unduly compelling a government or international organisation to perform or abstain from performing any act
  • seriously destabilising or destroying the fundamental political, constitutional, economic or social structures of a country or an international organisation

Criteria for listing

New individuals, groups and entities can be added to the EU terrorist list only when a decision on the matter has been already taken by a competent authority of a member state, or a third country.

This decision may concern:

  • the instigation of investigations or prosecution for a terrorist act, an attempt to perpetrate, participate in or facilitate such an act
  • condemnation for any of those actions

The Council reviews the list at regular intervals and at least every 6 months. In addition to this regular review, the Council can, at any time, adopt a decision on the listing or delisting of individuals, groups and entities.

Humanitarian exception

In February 2024, the Council decided to modify the EU framework on restrictive measures to combat terrorism (EU terrorist list), by introducing a humanitarian exception to the asset-freezing measures.

As a result of the decision, certain categories of humanitarian actors can engage in transactions with listed individuals and entities without any prior authorisation, if the purpose is to deliver humanitarian assistance or to support other activities that support basic human needs of people in need. These categories include:

  • those outlined in UN Security Council Resolution 2664 (2022)
  • organisations and agencies certified as humanitarian partners of the EU or its member states and member states’ specialised agencies

The humanitarian exception was last extended until 22 February 2027.

ISIL/Da’esh and Al-Qaeda

On 20 September 2016, the EU established a dedicated framework of restrictive measures against ISIL/Da’esh and Al-Qaeda and individuals, groups, undertakings and entities associated with them.

These autonomous EU restrictive measures are complementary to those adopted under the ‘EU terrorist list’.

What are the sanctions?

EU sanctions against ISIL/Da’esh and Al-Qaeda consist of:

  • a travel ban for individuals
  • an asset freeze for individuals, groups and entities
  • a prohibition on making funds or economic resources available to those listed

Under this regime, the EU may target those who support, materially or financially, ISIL/Da’esh and Al-Qaeda. It may also target those who participate in the planning, preparation or enabling of violent actions by ISIL/Da’esh and Al-Qaeda.

Individuals, groups, entities and bodies could also be listed for activities such as:

  • supplying, selling, or transferring arms and related materiel to ISIL/Da’esh and Al-Qaeda 
  • recruiting for these two organisations
  • inciting or publicly provoking violent actions of these two organisations

The Council reviews the list at regular intervals and at least every 12 months. Sanctions currently apply to a total of 15 individuals and eight groups and will remain in place until 31 October 2026. 

Hamas and the Palestinian Islamic Jihad

On 19 January 2024, the Council established a dedicated framework of restrictive measures that allows the European Union to hold accountable any individual or entity who supports, facilitates or enables violent actions by Hamas and the Palestinian Islamic Jihad (PIJ).

The decision was taken in view of the gravity of the attacks of 7 October 2023 against Israel and aims to prevent such violent actions by Hamas and PIJ in the future.

The new regime complements the restrictive measures previously adopted under the ‘EU terrorist list’.

What are the sanctions?

EU sanctions against Hamas and the Palestinian Islamic Jihad consist of:

  • a travel ban for individuals
  • an asset freeze for individuals, groups and entities
  • a prohibition on making funds or economic resources available to those listed

Under this regime, the EU may target those who support, materially or financially, Hamas or the PIJ. It may also target those who participate in the planning, preparation or enabling of violent actions by Hamas or the PIJ.

Individuals, groups, entities and bodies could also be listed for activities such as:

  • supplying, selling or transferring arms and related materiel to the two terrorist organisations
  • supporting actions which undermine or threaten the stability or security of Israel in conjunction with Hamas and the PIJ
  • being involved in serious violations of international humanitarian law or human rights law
  • inciting or publicly provoking violent actions of these two organisations

For the first time, the EU is also able to target the sponsors of those who sponsor these two terrorist organisations.

In May 2026, the Council decided to expand the scope of the sanctions to also target members of the Political Bureau (Politburo) of Hamas who promote, defend and justify violent actions. 

In addition, the EU has sanctioned three entities under the global human rights sanctions regime in response to the widespread sexual and gender-based violence committed during the brutal and indiscriminate terrorist attacks that occurred across Israel on 7 October 2023.

See also

The EU's response to terrorism

The EU's response to terrorism

Fight against money laundering and terrorist financing in the EU

Fight against money laundering and terrorist financing in the EU

Types of sanctions the EU adopts

Types of sanctions the EU adopts

Topics

Last review: 28 May 2026