Terrorism without terrorism

Vice President Franco Frattini, the EU commissioner in charge of freedom, security and justice, suggested to modify legislation on terrorism, so as not to require a terrorist action to be committed. Nothing really new, but a way of reaffirming the importance of combating terrorism at its roots. Internet is viewed as a particular threat.
Yet how does one prove the intent if there is no active step taken towards committing a terrorist action?


http://www.euractiv.com/en/infosociety/internet-targeted-new-eu-anti-terror-rules/article-168085