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Tackling Hate Speech in Times of Crisis: Key Recommendations from the Council of Europe

Addressing hate speech during crises poses several challenges, including distinguishing hate from free speech, accessing and removing online contents quickly, dedicating sufficient resources for rapid response, and investing in education and training.

A recent study commissioned by the Steering Committee on Anti-Discrimination, Diversity, and Inclusion (CDADI) of the Council of Europe presents crucial recommendations for addressing hate speech, particularly during crises. It underscores the need for amending legal frameworks, reinforcing law enforcement, strengthening collaboration between media and national human rights institutions, and prioritizing support for those targeted by hate speech. This comprehensive analysis, informed by data from social media, questionnaires, and interviews with stakeholders from Albania, Germany, Italy, Latvia, Romania, the Slovak Republic, and the United Kingdom, offers insights into the nature and response to hate speech in recent crises, such as the Covid-19 pandemic and the Russian military aggression against Ukraine.

The study reveals that crises can significantly exacerbate hate speech against specific individuals and groups. During the Covid-19 pandemic, the “infodemic”—excessive and often misleading information—led to a surge in hate speech targeting Chinese individuals, people of Asian descent, migrants, refugees, and national minorities. The pandemic also revived antisemitic conspiracy theories and intertwined hateful narratives. Roma and travellers in various European countries, particularly in Romania, experienced heightened discrimination.

Similarly, the Russian Federation’s full-scale military aggression against Ukraine since February 2022 has fostered violent, dehumanizing rhetoric. Hate speech opposing the Russian Federation and “The West” proliferated, with disinformation campaigns spreading hatred against Ukraine, its nationals, and refugees. This nationalistic hate speech has further fueled the conflict and presented challenges for the media and internet intermediaries, who are tasked with providing objective information and disentangling hateful narratives.

The study highlights that migrants and refugees remain major targets of hate speech across Europe, especially during crises. Terrorist attacks have exacerbated xenophobic sentiments, and hatred against Lesbian, Gay, Bisexual, Transgender, and Intersex (LGBTI) persons, particularly transgender individuals, has intensified. Antisemitic hate speech also increases during major crises.

Addressing hate speech during crises poses several challenges, including distinguishing hate from free speech, accessing and removing online contents quickly, dedicating sufficient resources for rapid response, and investing in education and training. Despite these challenges, significant steps have been taken at various levels. These include legal measures to combat hate speech, coordinated campaigns by law enforcement, educational initiatives, counter-speech activities, and support for those targeted by hate speech.

However, the study emphasizes that much more needs to be done to enhance preparedness for preventing and combating hate speech in times of crisis. It acknowledges the difficulty in amending legal frameworks, establishing efficient procedures, and making substantial policy changes during crises. Therefore, it advocates for building strong social cohesion and robust response mechanisms during ordinary times to ensure greater resilience against discriminatory and hateful speech and to enable quick and effective intervention during crises.

The study draws on Recommendation CM/Rec(2022)16 of the Committee of Ministers to member states on combating hate speech, adopted in May 2022. This recommendation serves as a foundational framework for member states to improve their strategies against hate speech. The study concludes by urging member states to adopt and implement these recommendations proactively, emphasizing that a proactive approach is crucial for ensuring that societies are prepared to tackle hate speech effectively, especially during times of crisis.

In summary, the CDADI’s study provides a thorough analysis and clear recommendations for addressing hate speech during crises. By enhancing legal frameworks, reinforcing law enforcement, strengthening collaboration among key stakeholders, and prioritizing support for hate speech victims, member states can better prepare for and respond to the challenges posed by hate speech in times of crisis.

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