With much fanfare, the government of Gordon Brown unveiled Contest 2, its sequel to the UK's previous counter-terrorism strategy. In the lead-up to its emergence, bits of the programme were leaked to the media, including that approximately 60,000 people such as security guards and shop clerks would receive training on what to watch for in terms of suspicious behaviour and how to react in the aftermath of a terrorist attack.

That aspect of the strategy was preceded by a new anti-terrorist campaign launched by the Association of Chief Police Officers (Acpo) and the Metropolitan police involving advertisements appearing at tube stations, on billboards in London and elsewhere, and even on the radio. These ads raise the spectre of terrorism and the reward for action by diligent citizens who in the tube and billboard ads notice suspicious behaviour, such as chemical containers in a skip or an individual studying CCTV cameras, and report the incidents via a confidential anti-terrorism hotline. The radio commercial provides the alternative to citizens failing to act with the sound of a devastating explosion.

In a UK context these campaigns represent an effort to widen public participation in counter-terrorism, essentially turning citizens into stakeholders in the effort. They also reflect a continued government concern about the risk of terrorism, particularly through low-level attacks carried out by so-called "self starters" who exist outside those groups and individuals already known to the police and security service.

Encouraging suspicion through counter-terrorism training of ordinary citizens or public advertising campaigns is not, however, without its own risks. There is the potential for certain citizens to be demonised and stigmatised when their activities receive excessive scrutiny and, through calls to the hotline, to unwarranted attention from the police. Indeed, this point plus the wider implications for civil liberties of state-sanctioned snitching were the issues that emerged when a similar effort was proposed in the US in 2002.

In January 2002, the Bush administration introduced the Terrorism Information and Prevention System (Tips) with the goal of increasing public participation in domestic counter-terrorism. The goal of Tips was to "enable millions of America transportation workers, postal workers, and public utility employees to identify and report suspicious activities linked to terrorism and crime". It was to do so by setting up a special hotline, similar to the one in the British advertising, that these workers could call to report suspicious behaviour. The US deputy attorney general hailed the programme as providing "millions of American truckers, letter carriers, train conductors, ship captains, utility employees, and others, whose routines allow them to be the 'eyes and ears' of police, a formal way to report suspicious or potential terrorist activity".

The programme largely escaped wider public attention until a story in an Australian newspaper compared it to something that could have emerged from the former German Democratic Republic. Very quickly a maelstrom of criticism erupted that ran across the American political spectrum from the American Civil Liberties Union and the Village Voice on the left to the New York Times in the centre to Republican congressmen Dick Armey and Bob Barr on the right, the latter who called it a "snitch system", that appeared to typify "the very type of fascist or communist government we fought so hard to eradicate in other countries in decades past". The New York Times ran interviews with some workers who potentially might be called upon to report information. A delivery driver remarked on the increased number of satellite dishes he had delivered to "Arabs" after 11 September while another driver complained that "[i]mmigrants stare more than anybody else". In an editorial the paper decried the new version of the programme: "Even if it is limited to public places, the programme is offensive. The idea of citizens spying on citizens, and the government collecting data on everyone who is accused, is a staple of totalitarian regimes."

By then, Tips had made a host of enemies, including Armey, the then Republican majority leader in the House of Representatives. With little fanfare, Armey inserted a clause into the Homeland Security Act that prohibited any efforts to implement Tips. The programme died when Bush signed the act into law in November 2002.

Whether similar controversy as in the US will appear in the UK remains to be seen. Past experience with CCTV would suggest not. Nevertheless, there remains a fine line between encouraging a well-informed public to be vigilant about terrorism and promoting paranoia that will lead to neighbour spying on neighbour.