This article analyses terrorism and counter-terrorism within a framework of communication. This analytic framework views violence as a form of communication that interacts with other forms of social and political communication, whether by non-state actors or state actors. By looking at how terrorism and counter-terrorism fit into the wider context of social and political life, both at the national and the international level, the analyst can better understand how terrorism emerges from other social or political activity, how it can evolve into legal or nonviolent action, and how it can be but one tool in a political or social struggle that includes both violent and nonviolent tactics. By including counter-terrorism and the array of control institutions used to battle terrorism and related phenomena, the model forces a degree of self-reflectivity and self-awareness upon the analyst, who must examine societal, state and international institutions and forms of social control alongside strategies and tactics of protest and political agitation. In a post-11 September world, this analytic task is all the more challenging.