CRI(2003)8 REV.

ECRI GENERAL POLICY

RECOMMENDATION No. 7

ON
NATIONAL LEGISLATION TO COMBAT
RACISM AND RACIAL DISCRIMINATION

ADOPTED ON 13 DECEMBER 2002

AND AMENDED ON 7 DECEMBER 2017
Published by the
European Commission against Racism and Intolerance (ECRI)
Council of Europe - 2018
Printed in Strasbourg
The European Commission against Having regard to the case-law of the
Racism and Intolerance (ECRI): European Court of Human Rights;

Recalling the Declaration adopted by Taking into account the Charter of

the Heads of State and Government of Fundamental Rights of the European
the member States of the Council of Union;
Europe at their first Summit held in
Vienna on 8-9 October 1993; Taking into account Directive
2000/43/EC of the Council of the
Recalling that the Plan of Action on European Union implementing the
combating racism, xenophobia, principle of equal treatment between
antisemitism and intolerance set out as persons irrespective of racial or ethnic
part of this Declaration invited the origin, and Directive 2000/78/EC of the
Committee of Ministers to establish the Council of the European Union
European Commission against Racism establishing a general framework for
and Intolerance with a mandate, inter equal treatment in employment and
alia, to formulate general policy occupation;
recommendations to member States;
Having regard to the Convention on the
Recalling also the Final Declaration and Prevention and Punishment of the
Action Plan adopted by the Heads of Crime of Genocide;
State and Government of the member
States of the Council of Europe at their Recalling ECRI’s general policy
second Summit held in Strasbourg on recommendation No 1 on combating
10-11 October 1997; racism, xenophobia, antisemitism and
intolerance and ECRI’s general policy
Recalling that Article 1 of the Universal recommendation No 2 on Equality
Declaration of Human Rights proclaims bodies to combat racism and
that all human beings are born free and intolerance at national level;
equal in dignity and rights;
Stressing that, in its country-by-country
Having regard to the International reports, ECRI regularly recommends to
Convention on the Elimination of All member States the adoption of effective
Forms of Racial Discrimination; legal measures aimed at combating
racism and racial discrimination;
Having regard to Convention No 111 of
the International Labour Organisation Recalling that, in the Political
concerning Discrimination (Employment Declaration adopted on 13 October
and Occupation); 2000 at the concluding session of the
European Conference against racism,
Having regard to Article 14 of the the governments of member States of
European Convention on Human the Council of Europe committed
Rights; themselves to adopting and
implementing, wherever necessary,
Having regard to Protocol No 12 to the national legislation and administrative
European Convention on Human Rights measures that expressly and
which contains a general clause specifically counter racism and prohibit
prohibiting discrimination; racial discrimination in all spheres of
public life;

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Recalling also the Declaration and the Convinced that the action of the State
Programme of Action adopted by the legislator against racism and racial
World Conference against Racism, discrimination also plays an educative
Racial Discrimination, Xenophobia and function within society, transmitting the
Related Intolerance held in Durban, powerful message that no attempts to
South Africa, from 31 August to legitimise racism and racial
8 September 2001; discrimination will be tolerated in a
society ruled by law;
Aware that laws alone are not sufficient
to eradicate racism and racial Seeking, alongside the other efforts
discrimination, but convinced that laws underway at international and
are essential in combating racism and European level, to assist member
racial discrimination; States in their fight against racism and
racial discrimination, by setting out in a
Stressing the vital importance of succinct and precise manner the key
appropriate legal measures in elements to be included in appropriate
combating racism and racial national legislation;
discrimination effectively and in a way
which both acts as a deterrent and, as
far as possible, is perceived by the
victim as satisfactory;

Recommends to the governments of member States:

a. to enact legislation against racism and racial discrimination, if such legislation

does not already exist or is incomplete ;

b. to ensure that the key components set out below are provided in such
legislation.

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 Key elements of national legislation
against racism and racial discrimination

I. Definitions

1. For the purposes of this Recommendation, the following definitions shall

apply :

a) “racism” shall mean the belief that a ground such as race1, colour,
language, religion, nationality or national or ethnic origin justifies
contempt for a person or a group of persons, or the notion of
superiority of a person or a group of persons.

b) “direct racial discrimination” shall mean any differential treatment

based on a ground such as race, colour, language, religion,
nationality or national or ethnic origin, which has no objective and
reasonable justification. Differential treatment has no objective and
reasonable justification if it does not pursue a legitimate aim or if
there is not a reasonable relationship of proportionality between
the means employed and the aim sought to be realised.

c) “indirect racial discrimination” shall mean cases where an

apparently neutral factor such as a provision, criterion or practice
cannot be as easily complied with by, or disadvantages, persons
belonging to a group designated by a ground such as race, colour,
language, religion, nationality or national or ethnic origin, unless
this factor has an objective and reasonable justification. This latter
would be the case if it pursues a legitimate aim and if there is a
reasonable relationship of proportionality between the means
employed and the aim sought to be realised.

II. Constitutional law

2. The constitution should enshrine the principle of equal treatment, the

commitment of the State to promote equality as well as the right of
individuals to be free from discrimination on grounds such as race,
colour, language, religion, nationality or national or ethnic origin. The
constitution may provide that exceptions to the principle of equal
treatment may be established by law, provided that they do not
constitute discrimination.

1 Since all human beings belong to the same species, ECRI rejects theories based on the existence of
different “races”. However, in this Recommendation ECRI uses this term in order to ensure that those
persons who are generally and erroneously perceived as belonging to “another race” are not excluded
from the protection provided for by the legislation.

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 3. The constitution should provide that the exercise of freedom of
expression, assembly and association may be restricted with a view to
combating racism. Any such restrictions should be in conformity with the
European Convention on Human Rights.

III. Civil and administrative law

4. The law should clearly define and prohibit direct and indirect racial
discrimination.

5. The law should provide that the prohibition of racial discrimination does
not prevent the maintenance or adoption of temporary special measures
designed either to prevent or compensate for disadvantages suffered by
persons designated by the grounds enumerated in paragraph 1 b)
(henceforth: enumerated grounds), or to facilitate their full participation in
all fields of life. These measures should not be continued once the
intended objectives have been achieved.

6. The law should provide that the following acts, inter alia, are considered
as forms of discrimination: segregation; discrimination by association;
announced intention to discriminate; instructing another to discriminate;
inciting another to discriminate; aiding another to discriminate.

7. The law should provide that the prohibition of discrimination applies to all
public authorities as well as to all natural or legal persons, both in the
public and in the private sectors, in all areas, notably: employment;
membership of professional organisations; education; training; housing;
health; social protection; goods and services intended for the public and
public places; exercise of economic activity; public services.

8. The law should place public authorities under a duty to promote equality
and to prevent discrimination in carrying out their functions.

9. The law should place public authorities under a duty to ensure that those
parties to whom they award contracts, loans, grants or other benefits
respect and promote a policy of non-discrimination. In particular, the law
should provide that public authorities should subject the awarding of
contracts, loans, grants or other benefits to the condition that a policy of
non-discrimination be respected and promoted by the other party. The
law should provide that the violation of such condition may result in the
termination of the contract, grant or other benefits.

10. The law should ensure that easily accessible judicial and/or
administrative proceedings, including conciliation procedures, are
available to all victims of discrimination. In urgent cases, fast-track
procedures, leading to interim decisions, should be available to victims
of discrimination.

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 11. The law should provide that, if persons who consider themselves
wronged because of a discriminatory act establish before a court or any
other competent authority facts from which it may be presumed that
there has been direct or indirect discrimination, it shall be for the
respondent to prove that there has been no discrimination.

12. The law should provide for effective, proportionate and dissuasive
sanctions for discrimination cases. Such sanctions should include the
payment of compensation for both material and moral damages to the
victims.

13. The law should provide the necessary legal tools to review, on an
ongoing basis, the conformity with the prohibition of discrimination of all
laws, regulations and administrative provisions at the national and local
levels. Laws, regulations and administrative provisions found not to be in
conformity with the prohibition of discrimination should be amended or
abrogated.

14. The law should provide that discriminatory provisions which are included
in individual or collective contracts or agreements, internal regulations of
enterprises, rules governing profit-making or non-profit-making
associations, and rules governing the independent professions and
workers’ and employers’ organisations should be amended or declared
null and void.

15. The law should provide that harassment related to one of the
enumerated grounds is prohibited.

16. The law should provide for an obligation to suppress public financing of
organisations which promote racism. Where a system of public financing
of political parties is in place, such an obligation should include the
suppression of public financing of political parties which promote racism.

17. The law should provide for the possibility of dissolution of organisations
which promote racism.

IV. Criminal law

18. The law should penalise the following acts when committed intentionally:

a) public incitement to violence, hatred or discrimination,

b) public insults and defamation or
c) threats

against a person or a grouping of persons on the grounds of their race,

colour, language, religion, nationality, or national or ethnic origin;

d) the public expression, with a racist aim, of an ideology which

claims the superiority of, or which depreciates or denigrates, a
grouping of persons on the grounds of their race, colour, language,
religion, nationality, or national or ethnic origin;

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 e) the public denial, trivialisation, justification or condoning, with a
racist aim, of crimes of genocide, crimes against humanity or war
crimes;

f) the public dissemination or public distribution, or the production or

storage aimed at public dissemination or public distribution, with a
racist aim, of written, pictorial or other material containing
manifestations covered by paragraphs 18 a), b), c), d) and e);

g) the creation or the leadership of a group which promotes racism ;

support for such a group ; and participation in its activities with the
intention of contributing to the offences covered by paragraph 18
a), b), c), d), e) and f);

h) racial discrimination in the exercise of one’s public office or

occupation.

19. The law should penalise genocide.

20. The law should provide that intentionally instigating, aiding, abetting or
attempting to commit any of the criminal offences covered by
paragraphs 18 and 19 is punishable.

21. The law should provide that, for all criminal offences not specified in
paragraphs 18 and 19, racist motivation constitutes an aggravating
circumstance.

22. The law should provide that legal persons are held responsible under
criminal law for the offences set out in paragraphs 18, 19, 20 and 21.

23. The law should provide for effective, proportionate and dissuasive
sanctions for the offences set out in paragraphs 18, 19, 20 and 21. The
law should also provide for ancillary or alternative sanctions.

V. Common provisions

24. The law should provide for the establishment of of one or more equality
bodies to combat racism and intolerance as set out in ECRI’s General
Policy Recommendation No. 2. The law should include within the
competence of such a body: assistance to victims; investigation powers;
the right to initiate, and participate in, court proceedings; monitoring
legislation and advice to legislative and executive authorities;
awareness-raising of issues of racism and racial discrimination among
society and promotion of policies and practices to ensure equal
treatment.

25. The law should provide that organisations such as associations, trade
unions and other legal entities which have, according to the criteria laid
down by the national law, a legitimate interest in combating racism and
racial discrimination, are entitled to bring civil cases, intervene in
administrative cases or make criminal complaints, even if a specific
victim is not referred to. If a specific victim is referred to, it should be
necessary for that victim’s consent to be obtained.

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26. The law should guarantee free legal aid and, where necessary, a court-
appointed lawyer, for victims who wish to go before the courts as
applicants or plaintiffs and who do not have the necessary means to do
so. If necessary, an interpreter should be provided free of charge.

27. The law should provide protection against any retaliatory measures for
persons claiming to be victims of racial offences or racial discrimination,
persons reporting such acts or persons providing evidence.

28. The law should provide for one or more independent bodies entrusted
with the investigation of alleged acts of discrimination committed by
members of the police, border control officials, members of the army and
prison personnel.

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 Explanatory Memorandum
to ECRI general policy recommendation N°7
on national legislation to combat racism
and racial discrimination

Introduction

1. This general policy recommendation (hereafter: the Recommendation)

focuses on the key elements of national legislation to combat racism and
racial discrimination. Although ECRI is aware that legal means alone are
not sufficient to this end, it believes that national legislation against
racism and racial discrimination is necessary to combat these
phenomena effectively.

2. In the framework of its country-by-country approach, ECRI regularly

recommends to member States of the Council of Europe the adoption of
effective legal measures aimed at combating racism and racial
discrimination. The Recommendation aims to provide an overview of
these measures and to clarify and complement the recommendations
formulated in this respect in ECRI’s country-by-country reports. The
Recommendation also aims to reflect the general principles contained in
the international instruments mentioned in the Preamble.

3. ECRI believes that appropriate legislation to combat racism and racial

discrimination should include provisions in all branches of the law, i.e.
constitutional, civil, administrative and criminal law. Only such an
integrated approach will enable member States to address these
problems in a manner which is as exhaustive, effective and satisfactory
from the point of view of the victim as possible. In the field of combating
racism and racial discrimination, civil and administrative law often
provides for flexible legal means, which may facilitate the victims’
recourse to legal action. Criminal law has a symbolic effect which raises
the awareness of society of the seriousness of racism and racial
discrimination and has a strong dissuasive effect, provided it is
implemented effectively. ECRI has taken into account the fact that the
possibilities offered by the different branches of the law are
complementary. As regards in particular the fight against racial
discrimination, ECRI recommends that the member States of the Council
of Europe adopt constitutional, civil and administrative law provisions,
and that, in certain cases, they additionally adopt criminal law provisions.

4. The legal measures necessary to combat racism and racial

discrimination at national level are presented in the form of key
components which should be contained in the national legislation of
member States. ECRI stresses that the measures it recommends are
compatible with different legal systems, be they common law or civil law
or mixed. Furthermore, those components that ECRI considers to be key
to an effective legal framework against racism and racial discrimination

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 may be adapted to the specific conditions of each country. They could
thus be set out in a single special act or laid out in the different areas of
national legislation (civil law, administrative law and penal law). These
key components might also be included in broader legislation
encompassing the fight against racism and racial discrimination. For
example, when adopting legal measures against discrimination, member
States might prohibit, alongside racial discrimination, other forms of
discrimination such as those based on gender, sexual orientation,
disability, political or other opinion, social origin, property, birth or other
status. Finally, in a number of fields, member States might simply apply
general rules, which it is therefore not necessary to set out in this
Recommendation. This is the position, for example, in civil law, for
multiple liability, vicarious liability, and for the establishment of levels of
damages; in criminal law, for the conditions of liability, and the
sentencing structure; and in procedural matters, for the organisation and
jurisdiction of the courts.

5. In any event, these key components represent only a minimum

standard; this means that they are compatible with legal provisions
offering a greater level of protection adopted or to be adopted by a
member State and that under no circumstances should they constitute
grounds for a reduction in the level of protection against racism and
racial discrimination already afforded by a member State.

I. Definitions

Paragraph 1 of the Recommendation

6. In the Recommendation, the term “racism” should be understood in a

broad sense, including phenomena such as xenophobia, antisemitism
and intolerance. As regards the grounds set out in the definitions of
racism and direct and indirect racial discrimination (paragraph 1 of the
Recommendation), in addition to those grounds generally covered by the
relevant legal instruments in the field of combating racism and racial
discrimination, such as race, colour and national or ethnic origin, the
Recommendation covers language, religion and nationality2. The
inclusion of these grounds in the definitions of racism and racial
discrimination is based on ECRI’s mandate, which is to combat racism,
antisemitism, xenophobia and intolerance. ECRI considers that these
concepts, which vary over time, nowadays cover manifestations
targeting persons or groups of persons, on grounds such as race,
colour, religion, language, nationality and national and ethnic origin. As a
result, the expressions “racism” and “racial discrimination” used in the
Recommendation encompass all the phenomena covered by ECRI's
mandate. National origin is sometimes interpreted as including the
concept of nationality. However, in order to ensure that this concept is
indeed covered, it is expressly included in the list of grounds, in addition
to national origin. The use of the expression “grounds such as” in the
definitions of racism and direct and indirect racial discrimination aims at

2 ECRI understands the term "nationality” as defined in Article 2 a). of the European Convention on
Nationality: “ ‘nationality’ means the legal bond between a person and a State and does not indicate the
person's ethnic origin”.

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 establishing an open-ended list of grounds, thereby allowing it to evolve
with society. However, in criminal law, an exhaustive list of grounds
could be established in order to respect the principle of forseeability
which governs this branch of the law.

7. Unlike the definition of racial discrimination (paragraphs 1 b) and c) of

the Recommendation), which should be included in the law, the
definition of racism is provided for the purposes of the Recommendation,
and member States may or may not decide to define racism within the
law. If they decide to do so, they may, as regards criminal law, adopt a
more precise definition than that set out in paragraph 1 a), in order to
respect the fundamental principles of this branch of the law. For racism
to have taken place, it is not necessary that one or more of the grounds
listed should constitute the only factor or the determining factor leading
to contempt or the notion of superiority; it suffices that these grounds are
among the factors leading to contempt or the notion of superiority.

8. The definitions of direct and indirect racial discrimination contained in

paragraph 1 b) and c) of the Recommendation draw inspiration from
those contained in the Directive 2000/43/CE of the Council of the
European Union implementing the principle of equal treatment between
persons irrespective of racial or ethnic origin and in the
Directive 2000/78/CE of the Council of the European Union establishing
a general framework for equal treatment in employment and occupation
as well as on the case-law of the European Court of Human Rights. In
accordance with this case-law, differential treatment constitutes
discrimination if it has no objective and reasonable justification. This
principle applies to differential treatment based on any of the grounds
enumerated in the definition of racial discrimination. However, differential
treatment based on race, colour and ethnic origin may have an objective
and reasonable justification only in an extremely limited number of
cases. For instance, in employment, where colour constitutes a genuine
and determining occupational requirement by reason of the nature of the
particular occupational activities concerned or of the context in which
they are carried out, differential treatment based on this ground may
have an objective and reasonable justification. More generally, the
notion of objective and reasonable justification should be interpreted as
restrictively as possible with respect to differential treatment based on
any of the enumerated grounds.

II. Constitutional law

9. In the Recommendation, the term “constitution” should be understood in

a broad sense, including basic laws and written and unwritten basic
rules. In paragraphs 2 and 3, the Recommendation provides for certain
principles that should be contained in the constitution; such principles
are to be implemented by statutory and regulatory provisions.

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 Paragraph 2 of the Recommendation

10. In paragraph 2, the Recommendation allows for the possibility of

providing in the law for exceptions to the principle of equal treatment,
provided that they do not constitute discrimination. For this condition to
be met, in accordance with the definitions of discrimination proposed in
paragraph 1 b) and c) of the Recommendation, the exceptions must
have an objective and reasonable justification. This principle applies to
all exceptions, including those establishing differential treatment on the
basis of nationality.

Paragraph 3 of the Recommendation

11. According to paragraph 3 of the Recommendation, the constitution

should provide that the exercise of freedom of expression, assembly and
association may be restricted with a view to combating racism. In
articles 10 (2) and 11 (2), the European Convention on Human Rights
enumerates the aims which may justify restrictions to these freedoms.
Although the fight against racism is not mentioned as one of these aims,
in its case-law the European Court of Human Rights has considered that
it is included. In accordance with the articles of the Convention
mentioned above, these restrictions should be prescribed by law and
necessary in a democratic society.

III. Civil and administrative law

Paragraph 4 of the Recommendation

12. The Recommendation provides in paragraph 4 that the law should

clearly define and prohibit direct and indirect racial discrimination. It
offers a definition of direct and indirect racial discrimination in paragraph
1 b) and c). The meaning of the expression “differential treatment” is
wide and includes any distinction, exclusion, restriction, preference or
omission, be it past, present or potential. The term “ground” must include
grounds which are actual or presumed. For instance, if a person
experiences adverse treatment due to the presumption that he or she is
a Muslim, when in reality this is not the case, this treatment would still
constitute discrimination on the basis of religion.

13. Discriminatory actions are rarely based solely on one or more of the
enumerated grounds, but are rather based on a combination of these
grounds with other factors. For discrimination to occur, it is therefore
sufficient that one of the enumerated grounds constitutes one of the
factors leading to the differential treatment. The use of restrictive
expressions such as “difference of treatment solely or exclusively based
on grounds such as …” should therefore be avoided.

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Paragraph 5 of the Recommendation

14. In its paragraph 5, the Recommendation provides for the possibility of

temporary special measures designed either to prevent or compensate
for disadvantages suffered by persons designated by the enumerated
grounds, or to facilitate their full participation in all fields of life. An
example of temporary special measures designed to prevent or
compensate for disadvantages linked to the enumerated grounds: a
factory owner who has no black employees among his managerial staff
but many black employees on the assembly line might organise a
training course for black workers seeking promotion. An example of
temporary special measures designed to facilitate the full participation, in
all fields of life, of persons designated by the enumerated grounds: the
police could organise a recruitment campaign designed so as to
encourage applications particularly from members of certain ethnic
groups who are under-represented within the police.

Paragraph 6 of the Recommendation

15. The Recommendation specifically mentions in paragraph 6 certain acts

which should be considered by law as forms of discrimination. In theory,
the application of the general legal principles and the definition of
discrimination should enable these acts to be covered. However,
practice demonstrates that these acts often tend to be overlooked or
excluded from the scope of application of the legislation. For reasons of
effectiveness, it may therefore be useful for the law to provide expressly
that these acts are considered as forms of discrimination.

16. Among the acts which the Recommendation mentions specifically as

forms of discrimination, the following warrant a brief explanation:

- Segregation is the act by which a (natural or legal) person separates

other persons on the basis of one of the enumerated grounds
without an objective and reasonable justification, in conformity with
the proposed definition of discrimination. As a result, the voluntary
act of separating oneself from other persons on the basis of one of
the enumerated grounds does not constitute segregation.

- Discrimination by association occurs when a person is discriminated

against on the basis of his or her association or contacts with one or
more persons designated by one of the enumerated grounds. This
would be the case, for example, of the refusal to employ a person
because s/he is married to a person belonging to a certain ethnic
group.

- The announced intention to discriminate should be considered as

discrimination, even in the absence of a specific victim. For instance,
an employment advertisement indicating that Roma/Gypsies need
not apply should fall within the scope of the legislation, even if no
Roma/Gypsy has actually applied.

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 Paragraph 7 of the Recommendation

17. According to paragraph 7 of the Recommendation, the prohibition of

discrimination should apply in all areas. Concerning employment, the
prohibition of discrimination should cover access to employment,
occupation and self-employment as well as work conditions,
remunerations, promotions and dismissals.

18. As concerns membership of professional organisations, the prohibition

of discrimination should cover: membership of an organisation of
workers or employers, or any organisation whose members carry on a
particular profession ; involvement in such organisations ; and the
benefits provided for by such organisations.

19. Concerning education, the prohibition of discrimination should cover pre-

school, primary, secondary and higher education, both public and
private. Furthermore, access to education should not depend on the
immigration status of the children or their parents.

20. As concerns training, the prohibition of discrimination should cover initial

and on-going vocational training, all types and all levels of vocational
guidance, advanced vocational training and retraining, including the
acquisition of practical work experience.

21. As concerns housing, discrimination should be prohibited in particular in

access to housing, in housing conditions and in the termination of rental
contracts.

22. As concerns health, discrimination should be prohibited in particular in

access to care and treatment, and in the way in which care is dispensed
and patients are treated.

23. Concerning social protection, the prohibition of discrimination should

cover social security, social benefits, social aid (housing benefits, youth
benefits, etc.) and the way in which the beneficiaries of social protection
are treated.

24. As concerns goods and services intended for the public and public
places, discrimination should be prohibited, for instance, when buying
goods in a shop, when applying for a loan from a bank and in access to
discotheques, cafés or restaurants. The prohibition of discrimination
should not only target those who make goods and services available to
others, but also those who receive goods and services from others, as
would be the case of a company which selects the providers of a given
good or service on the basis of one of the enumerated grounds.

25. Concerning the exercise of economic activity, this field covers

competition law, relations between enterprises and relations between
enterprises and the State.

26. The field of public services includes the activities of the police and other
law enforcement officials, border control officials, the army and prison
personnel.

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Paragraph 8 of the Recommendation

27. According to paragraph 8 of the Recommendation, the law should place

public authorities under a duty to promote equality and to prevent
discrimination in carrying out their functions. The obligations incumbent
on such authorities should be spelled out as clearly as possible in the
law. To this end, public authorities could be placed under the obligation
to create and implement “equality programmes” drawn up with the
assistance of the equality body referred to in paragraph 24 of the
Recommendation. The law should provide for the regular assessment of
the equality programmes, the monitoring of their effects, as well as for
effective implementation mechanisms and the possibility for legal
enforcement of these programmes, notably through the national
specialised body. An equality programme could, for example, include the
nomination of a contact person for dealing with issues of racial
discrimination and harassment or the organisation of staff training
courses on discrimination. As regards the obligation to promote equality
and prevent discrimination, the Recommendation covers only public
authorities; however, it would be desirable were the private sector also
placed under a similar obligation.

Paragraph 10 of the Recommendation

28. According to paragraph 10 of the Recommendation, in urgent cases,

fast-track procedures, leading to interim decisions, should be available
to victims of discrimination. These procedures are important in those
situations where the immediate consequences of the alleged
discriminatory act are particularly serious or even irreparable. Thus, for
example, the victims of a discriminatory eviction from a flat should be
able to suspend this measure through an interim judicial decision,
pending the final judgement of the case.

Paragraph 11 of the Recommendation

29. Given the difficulties complainants face in collecting the necessary

evidence in discrimination cases, the law should facilitate proof of
discrimination. For this reason, according to paragraph 11 of the
Recommendation, the law should provide for a shared burden of proof in
such cases. A shared burden of proof means that the complainant
should establish facts allowing for the presumption of discrimination,
whereupon the onus shifts to the respondent to prove that discrimination
did not take place. Thus, in case of alleged direct racial discrimination,
the respondent must prove that the differential treatment has an
objective and reasonable justification. For example, if access to a
swimming pool is denied to Roma/Gypsy children, it would be sufficient
for the complainant to prove that access was denied to these children
and granted to non-Roma/Gypsy children. It should then be for the
respondent to prove that this denial to grant access was based on an
objective and reasonable justification, such as the fact that the children
in question did not have bathing hats, as required to access the
swimming pool. The same principle should apply to alleged cases of
indirect racial discrimination.

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 30. As concerns the power to obtain the necessary evidence and
information, courts should enjoy all adequate powers in this respect.
Such powers should be also given to any equality body competent to
adjudicate on an individual complaint of discrimination (see see
paragraph 21 of General Policy Recommendation No. 2).

Paragraph 12 of the Recommendation

31. Paragraph 12 of the Recommendation states that the law should provide
for effective, proportionate and dissuasive sanctions for discrimination
cases. Apart from the payment of compensation for material and moral
damages, sanctions should include measures such as the restitution of
rights which have been lost. For instance, the law should enable the
court to order re-admittance into a firm or flat, provided that the rights of
third parties are respected. In the case of discriminatory refusal to recruit
a person, the law should provide that, according to the circumstances,
the court could order the employer to offer employment to the
discriminated person.

32. In the case of discrimination by a private school, the law should provide
for the possibility of withdrawing the accreditation awarded to the school
or the non-recognition of the diplomas issued. In the case of
discrimination by an establishment open to the public, the law should
provide for the possibility of withdrawing a licence and of closing the
establishment. For example, in the case of discrimination by a
discotheque, it should be possible to withdraw the licence to sell alcohol.

33. Non-monetary forms of reparation, such as the publication of all or part

of a court decision, may be important in rendering justice in cases of
discrimination.

34. The law should provide for the possibility of imposing a programme of
positive measures on the discriminator. This is an important type of
remedy in promoting long-term change in an organisation. For instance,
the discriminator could be obliged to organise for its staff specific training
programmes aimed at countering racism and racial discrimination. The
national equality body should participate in the development and
supervision of such programmes.

Paragraph 15 of the Recommendation

35. According to paragraph 15 of the Recommendation the law should

provide that harassment related to one of the enumerated grounds is
prohibited. Harassment consists in conduct related to one of the
enumerated grounds which has the purpose or the effect of violating the
dignity of a person and of creating an intimidating, hostile, degrading,
humiliating or offensive environment. As far as possible, protection
against harassment related to one of the enumerated grounds should
not only target the conduct of the author of the harassment but also that
of other persons. For instance, it should be possible for the employer to
be held responsible, where applicable, for harassment by colleagues,
other employees or third parties (such as clients and suppliers).

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 Paragraph 16 of the Recommendation

36. Paragraph 16 of the Recommendation states that the law should provide
for the obligation to suppress public financing of political parties which
promote racism. For example, public financing for electoral campaigns
should be refused to such political parties.

Paragraph 17 of the Recommendation

37. Paragraph 17 of the Recommendation states that the law should provide
for the possibility of the dissolution of organisations which promote
racism. In all cases, the dissolution of such organisations may result only
from a Court decision. The issue of the dissolution of these
organisations is also dealt with under Section IV - Criminal law (see
paragraphs 43 and 49 of the present Explanatory Memorandum).

IV. Criminal law

Paragraph 18 of the Recommendation

38. The Recommendation limits the scope of certain criminal offences set
out in paragraph 18 to the condition that they are committed in “public”.
Current practice shows that, in certain cases, racist conduct escapes
prosecution because it is not considered as being of a public nature.
Consequently, member States should ensure that it should not be too
difficult to meet the condition of being committed in “public”. Thus, for
instance, this condition should be met in cases of words pronounced
during meetings of neo-Nazi organisations or words exchanged in a
discussion forum on the Internet.

39. Some of the offences set out in paragraph 18 of the Recommendation

concern conduct aimed at a “grouping of persons”. Current practice
shows that legal provisions aimed at sanctioning racist conduct
frequently do not cover such conduct unless it is directed against a
specific person or group of persons. As a result, expressions aimed at
larger groupings of persons, as in the case of references to asylum
seekers or foreigners in general, are often not covered by these
provisions. For this reason, paragraph 18 a), b), c), and d) of the
Recommendation does not speak of “group” but of “grouping” of
persons.

40. The term “defamation” contained in paragraph 18 b) should be

understood in a broad sense, notably including slander and libel.

41. Paragraph 18 e) of the Recommendation refers to the crimes of

genocide, crimes against humanity and war crimes. The crime of
genocide should be understood as defined in Article II of the Convention
for the Prevention and Punishment of the Crime of Genocide and Article
6 of the Statute of the International Criminal Court (see paragraph 45 of
the present Explanatory Memorandum). Crimes against humanity and
war crimes should be understood as defined in Articles 7 and 8 of the
Statute of the International Criminal Court.

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 42. Paragraph 18 f) of the Recommendation refers to the dissemination,
distribution, production or storage of written, pictorial or other material
containing racist manifestations. These notions include the
dissemination of this material through the Internet. Such material
includes musical supports such as records, tapes and compact discs,
computer accessories (e.g. floppy discs, software), video tapes, DVDs
and games.

43. Paragraph 18 g) of the Recommendation provides for the criminalisation

of certain acts related to groups which promote racism. The concept of
group includes in particular de facto groups, organisations, associations
and political parties. The Recommendation provides that the creation of
a group which promotes racism should be prohibited. This prohibition
also includes maintaining or reconstituting a group which has been
prohibited. The issue of the dissolution of a group which promotes
racism is also dealt with under Section III - Civil and administrative law
(see paragraph 37 of the present Explanatory Memorandum) and below
(see paragraph 49 of the present Explanatory Memorandum). Moreover,
the notion of “support” includes acts such as providing financing to the
group, providing for other material needs, producing or obtaining
documents.

44. In its paragraph 18 h) the Recommendation states that the law should
penalise racial discrimination in the exercise of one’s public office or
occupation. On this point, the definitions contained in paragraphs 1 b)
and c) and 5 of the Recommendation apply mutatis mutandis. Racial
discrimination in the exercise of one’s public office or occupation
includes notably the discriminatory refusal of a service intended for the
public, such as discriminatory refusal by a hospital to care for a person
and the discriminatory refusal to sell a product, to grant a bank loan or to
allow access to a discotheque, café or restaurant.

Paragraph 19 of the Recommendation

45. Paragraph 19 of the Recommendation provides that the law should

penalise genocide. To this end, the crime of genocide should be
understood as defined in Article II of Convention on the Prevention and
Punishment of the Crime of Genocide and Article 6 of the Statute of the
International Criminal Court, i.e. as “any of the following acts committed
with intent to destroy, in whole or in part, a national, ethnical, racial or
religious group, as such: killing members of the group; causing serious
bodily or mental harm to members of the group; deliberately inflicting on
the group conditions of life calculated to bring about its physical
destruction in whole or in part; imposing measures intended to prevent
births within the group; forcibly transferring children of the group to
another group”. The Recommendation refers only to penalisation of
genocide and not of war crimes and crimes against humanity since
these are not necessarily of a racist nature. However, if they do present
such a nature, the aggravating circumstance provided for in
paragraph 21 of the Recommendation should apply.

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 Paragraph 20 of the Recommendation

46. Paragraph 20 of the Recommendation provides that instigating, aiding,

abetting or attempting to commit any of the criminal offences covered by
paragraphs 18 and 19 should be punishable. This recommendation
applies only to those offences for which instigating, aiding, abetting or
attempting are possible.

Paragraph 21 of the Recommendation

47. According to paragraph 21 of the Recommendation, the racist motivation

of the perpetrator of an offence other than those covered by paragraphs
18 and 19 should constitute an aggravating circumstance. Furthermore,
the law may penalise common offences but with a racist motivation as
specific offences.

Paragraph 22 of the Recommendation

48. According to paragraph 22 of the Recommendation, the law should

provide for the criminal liability of legal persons. This liability should
come into play when the offence has been committed on behalf of the
legal person by any persons, particularly acting as the organ of the legal
person (for example, President or Director) or as its representative.
Criminal liability of a legal person does not exclude the criminal liability
of natural persons. Public authorities may be excluded from criminal
liability as legal persons.

Paragraph 23 of the Recommendation

49. According to paragraph 23 of the Recommendation, the law should

provide for ancillary or alternative sanctions. Examples of these could
include community work, participation in training courses, deprivation of
certain civil or political rights (e.g. the right to exercise certain
occupations or functions; voting or eligibility rights) or publication of all or
part of a sentence. As regards legal persons, the list of possible
sanctions could include, besides fines: refusal or cessation of public
benefit or aid, disqualification from the practice of commercial activities,
placing under judicial supervision, closure of the establishment used for
committing the offence, seizure of the material used for committing the
offence and the dissolution of the legal person (see on this last point
paragraphs 37 and 43 of the present Explanatory Memorandum).

V. Common provisions

Paragraph 24 of the Recommendation

50. The details of the establishment of equality bodies are laid down in
ECRI’s General Policy Recommendation No. 2.

Paragraphs 51 to 55 deleted by GPR No. 2 adopted on 7 December 2017.

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 Paragraph 25 of the Recommendation

56. The Recommendation provides in its paragraph 25 that organisations

such as associations, trade unions and other legal entities with a
legitimate interest should be entitled to bring complaints. Such a
provision is important, for instance, in cases where a victim is afraid of
retaliation. Furthermore, the possibility for such organisations to bring a
case of racial discrimination without reference to a specific victim is
essential for addressing those cases of discrimination where it is difficult
to identify such a victim or cases which affect an indeterminate number
of victims.

Paragraph 27 of the Recommendation

57. According to paragraph 27 of the Recommendation, the law should

provide protection against retaliation. Such protection should not only be
afforded to the person who initiates proceedings or brings the complaint,
but should also be extended to those who provide evidence, information
or other assistance in connection with the court proceedings or the
complaint. Such protection is vital to encourage the victims of racist
offences and discrimination to put forward their complaints to the
authorities and to encourage witnesses to give evidence. In order to be
effective, the legal provisions protecting against retaliation should
provide for an appropriate and clear sanction. This might include the
possibility of an injunction order to stop the retaliatory acts and/or to
compensate victims of such acts.

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 THE COUNCIL OF EUROPE
The Council of Europe is a political organisation which was founded on 5 May 1949 by ten European
countries in order to promote greater unity between its members. It now numbers 47 European
States.3
The main aims of the Organisation are to promote democracy, human rights and the rule of law, and
to develop common responses to political, social, cultural and legal challenges in its member States.
The Council of Europe has its permanent headquarters in Strasbourg (France). By Statute, it has two
constituent organs: the Committee of Ministers and the Parliamentary Assembly. The Congress of
Local and Regional Authorities of Europe represents the entities of local and regional self-
government within the member States.
The European Court of Human Rights is the judicial body competent to adjudicate complaints
brought against a State by individuals, associations or other contracting States on grounds of
violation of the European Convention on Human Rights.

EUROPEAN COMMISSION AGAINST RACISM AND INTOLERANCE

The European Commission against Racism and Intolerance (ECRI) is a monitoring body established
by the first Summit of Heads of State and Government of the member States of the Council of
Europe. The decision to establish ECRI is contained in the Vienna Declaration adopted by the first
Summit on 9 October 1993. The European Conference against Racism, held in Strasbourg in
October 2000, called for the strengthening of ECRI’s action. On 13 June 2002, the Committee of
Ministers adopted a new Statute for ECRI, consolidating its role as an independent human rights
monitoring body on issues related to racism and racial discrimination.
The members of ECRI serve in their individual capacity and are independent. The task of ECRI is to
combat racism, xenophobia, antisemitism and intolerance at the level of greater Europe and from the
perspective of the protection of human rights. ECRI's action covers all necessary measures to
combat violence, discrimination and prejudice faced by persons or groups of persons, notably on
grounds of race, colour, language, religion, nationality or national or ethnic origin.
ECRI's statutory activities are: country-by-country monitoring; elaboration of General Policy
Recommendations; relations with civil society.

For further information on ECRI and its activities, please contact:

Secretariat of the European Commission against
Racism and Intolerance
Council of Europe
F-67075 Strasbourg cedex
Tel: +33 (0)3 90 21 46 62
E-mail: [email protected]
Website: www.coe.int/ecri

3 Albania, Andorra, Armenia, Austria, Azerbaijan, Belgium, Bosnia and Herzegovina, Bulgaria, Croatia, Cyprus,
Czech Republic, Denmark, Estonia, Finland, France, Germany, Georgia, Greece, Hungary, Iceland, Ireland, Italy,
Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Republic of Moldova, Monaco, Montenegro, Netherlands, Norway,
Poland, Portugal, Romania, Russian Federation, San Marino, Serbia, Slovak Republic, Slovenia, Spain, Sweden,
Switzerland, “the Former Yugoslav Republic of Macedonia”, Turkey, Ukraine, United Kingdom.

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