Defending
free speech
– measures to protect journalists, elected
representatives and artists from exposure
to threats and hatred
Content
Preface.........................................................3
Summary – safeguarding the
democratic discourse
................................5
1. The democratic discourse.....................6
1.1 Polarisation creates tensions ...............7
1.2 A changing media landscape................ 7
1.3 Sexism and racism in the
public sphere.............................................9
1.4 The work to safeguard the
democratic discourse ............................9
1.4.1 Counteracting sexism, racism and
violent extremism ..................................10
1.4.2 Improved source criticism...................12
1.4.3 Support for civil society........................13
1.4.4 Dialogue with the global
internet companies ...............................13
2. A harsher climate for discussion
and debate and its consequences
.........14
2.1 Safeguarding key actors in the
democratic discourse ...........................14
2.1.1 Elected representatives.......................16
2.1.2 Journalists.................................................16
2.1.3 Artists ........................................................18
2.1.4 Opinion makers ......................................18
Photo
Cover: Johnér
: Kristian Pohl Page 3
Page 8: Maskot, TT
Page 17: Roger Turesson, TT
Page 23: Maja Suslin, TT
Page 25: Joachim Belaie, Folio
Page 30: Jeppe Wikström, Johnér
Article: Ku18.01.
Read, download and share
this action plan at government.se
3. The work of the judicial system to
safeguard the democratic discourse ... 21
3.1 The Government is strengthening
the work of crime prevention .............21
3.2 The Swedish Police Authority protects
the fundamental rights and freedoms 21
3.3 The Swedish Police Authority and the
Swedish Prosecution Authority
improve the conditions for
investigation and
legal proceedings...................................22
3.4 Initiatives of the Swedish Police
Authority and the Swedish Prosecution
Authority against cybercrime.............. 24
3.5 The Government is strengthening
the criminal law protection..................25
4. The Government is strengthening
the preventive work against exposure
to threats and hatred
............................. 26
4.1 Deeper knowledge of threats
and hatred ..............................................26
4.2 Basic support for all those exposed ...28
4.3 Stronger support for elected
representatives .....................................28
4.4 Stronger support for journalists
and editorial offices .............................29
4.5 Stronger support for artists ..............30
4.6 International cooperation for
the protection of journalists
and artists...............................................
30
3 Defending free speech
Preface
Freedom of expression is statutory in Sweden.
Our public discourse rests on this freedom,
which is the foundation of a living democracy.
But what are the actual circumstances for
being able to exercise freedom of expression?
The risk of exposure to hatred and threats
has increased in pace with the polarisation of
our society. The conditions for being seen
and heard and for communicating with each
other have changed. The digital transformation
brings great opportunities, but also challenges.
While more people are able to express
thoughts and ideas, it is not a given that
everyone who wants to express an opinion
chooses to participate in the public debate.
Too many feel that their opportunities to
freely express themselves in the public
sphere are being limited. Not least, journalists,
elected representatives and artists bear
witness to a harsher climate for discussion
and debate, and that their exposure to
threats and hatred leads to adaptation and
self-censorship.
The free and open formation of opinion is a
decisive factor for a democracy to function.
An open discourse that provides a meeting
place for many different voices and perspectives
builds trust between people. When voices in
the public sphere are silenced, it might serve
to undermine democracy. Without a diversity
of voices freely expressing opinions and
debating society’s development, we risk
slowly but surely eroding the legitimacy of
our democracy. We risk creating a breeding
ground for less rmly anchored decisions
about how our society is to develop.
The Government believes that everyone has
a responsibility to respect their ideological
opponents. Our public discourse is everyone's
discourse. This is why we are joining forces
to defend free expression.
More knowledge and cooperation, combined
with new measures, are necessary in order
to reduce the exposure of key actors in the
democratic discourse – journalists, elected
representatives and artists – actors in the
service of free expression upon whom we
all depend for an open and lively democratic
discourse.
Alice Bah Kuhnke
Minister for Culture and Democracy
Our public discourse
is everyone's
discourse. This is
why we are joining
forces to defend
free speech.
5 Defending free speech
Summary – safeguarding the
democratic discourse
In order to safeguard democracy, it is crucial
that society creates conditions for an open
and inclusive public discourse.
The Government is therefore commencing a
more systematic effort to safeguard – and
thereby strengthen – the democratic discourse
against threats and hatred. The work conducted
by the judicial authorities is of importance, but
not enough to protect the democratic discourse.
Society needs both wide-ranging efforts to
strengthen democracy and targeted measures
to prevent threats and hatred against the key
actors in the democratic discourse. This action
plan, issued by the Swedish Government, is
specically intended to safeguard politically
elected representatives, journalists and artists
as a part of the infrastructure of the democratic
discourse. These actors are particularly
exposed due to the functions they have
in society.
Based on integrated knowledge, the
Government presents ongoing as well as
new initiatives in the area, with the aim of
laying the foundation for more systematic
work in the future. The ambition is to
strengthen its preventive work through
greater knowledge and targeted measures
that can reduce the exposure of elected
representatives, journalists and artists to
threats and hatred.
The rst section of the action plan provides
a situational assessment of the challenges
accompanying polarisation and a changing
media landscape, and the opportunities that
digital development entails for the democratic
discourse. The Government is already
implementing a number of preventive
measures to help safeguard the democratic
discourse and counteract exposure to threats
and hatred in the public sphere. These are
described in Section 1.4.
The second section of the action plan,
concerning the tougher climate for discus-
sion and debate, describes the exposure of
elected representatives, journalists, artists
and opinion makers to threats and hatred.
The third section presents initiatives by the
judicial system to strengthen the work
against offences that threaten the fundamental
rights and freedoms. The fourth and nal
section presents the Government's measures
to prevent threats and hatred against the key
actors identied.
6 Defending free speech
1. The democratic discourse
Freedom of expression and respect for free
speech are fundamental in a democratic
society. Freedom of expression is regulated
in our fundamental laws – the Instrument
of Government, the Freedom of the Press
Act and the Fundamental Law on Freedom
of Expression. Freedom of expression is also
incorporated in the European Convention on
Human Rights, the Charter of Fundamental
Rights of the European Union and the
International Covenant on Civil and
Political Rights. Freedom of expression, the
free formation of opinion and respect for
human rights are essential for everyone –
women, men, girls, boys and people with
another gender identity – in order to have
the opportunity to express opinions,
inuence society and participate in the
democratic discourse.
The starting point for the Government's
democracy policy is the existence of positive
conditions for all people to put forth their
opinions. The goal is a living democracy
that empowers citizens to take part. In
addition to the general elections that are
foundational to a representative democracy,
there must be equal opportunities for
inuence between elections. This might, for
example, involve participating in demon-
strations, inuence through non-prot
organisations and liberal adult education,
participation in the media or through direct
contact with decision makers. It might also
involve participating in referendums,
citizens' dialogue or submitting citizens'
initiatives. Civil society plays a key role in
our democracy since democracy is depen-
dent on people's participation in society and
engagement in societal issues. There is thus
a need for a policy that promotes democracy
and a policy that promotes the freedom and
independence of civil society.
Argumentation and a democratic discourse
have been important since the birth of
democracy. The Government views the
democratic discourse as an open, common
and continually ongoing exchange of views
and knowledge between people in the public
sphere. It is predicated on people becoming
engaged in societal issues, seeking, receiving
and disseminating knowledge, exchanging
opinions, adopting perspectives and
forming opinion directed towards the public
arena. Participants in the democratic
discourse might be people who participate
individually or together with others in
forms such as networks, organisations
and parties.
The democratic discourse can take place in
both digital and physical environments, at
multiple levels and with regard to different
types of issues. Such discourse can for
example take place at meetings, seminars
and conferences, within cultural institu-
tions, in the news media and social media,
in comments elds or in other discussion
forums. It can take place locally, nationally
or internationally. The discourse might
involve a distinct issue, e.g. a local construction
project, or an international future issue such
as climate change.
The democratic discourse provides oxygen
for the democratic form of government and
our representative democracy by bringing
opinions, perspectives and knowledge to
the attention of elected representatives in
political assemblies and others in power.
This ow of opinions and knowledge
vitalises and enriches the decision-making.
It is therefore of great importance that the
democratic discourse is open to a diversity
of voices and that different perceptions are
stated. The living democratic discourse is
7 Defending free speech
closely linked to the conditions for freedom
of expression. The starting point is that
everyone has the freedom to express what
they wish, but no one has the right to go
unchallenged. Criticism and questioning
form part of the discourse. It must be
allowed to object and think differently,
and it must be possible to pit opinions
against each other. However, everyone
should contribute to a respectful tone of
discussion, free from the threats and
hatred that cause people to fall silent.
Respect for one's ideological opponents
is central in a democracy.
If people's opportunities to participate in
the democratic discourse are limited on
account of phenomena such as threats and
hatred, it will inuence the formation of
opinion in society. Opinions, perspectives
and knowledge risk becoming marginalised
and omitted from decision-making processes.
Political processes and decisions become
less rmly anchored, decrease in legitimacy
and maintain lower quality. A limited
democratic discourse ultimately leads to a
less effective democracy.
1.1 Polarisation creates tensions
In an international comparison, Sweden is
an open country with equal opportunities.
An increased acceptance of differences and
diversity has been the long term development
within the population. The vast majority are
positive and respectful towards the choices
and perceptions of other people. At the same
time Sweden, like many other countries
today, is showing worrying signs of polarisation.
We are witnessing greater tensions between
groups in society, and people appear to be
drifting apart from each other with regard to
fundamental values. The proportion of the
population who are positive to diversity has
decreased by 10 percentage points between
2014 and 2016 according to the University
of Gävle's Diversity Index (2016).
The polarisation can also be seen as an
expression of fewer areas of contact between
people. There are signs of increased segregation
in cities and growing disparities between
different parts of Sweden. Segregation on for
example the housing market (Andersson &
Kährik, 2016) and in the education system
(IFAU, 2015) creates differentiation and
reduces the areas of contact that enable
people with different backgrounds and
experiences to meet and interact with each
other. The unequal opportunities to nd
employment, a good school for one's
children, well-functioning healthcare and
good housing are factors contributing to
the polarisation.
The polarisation is reinforced by organisa-
tions and movements, both in and outside
Europe, whose strategy is to create greater
tensions between people by pitting “us
against them” and to abuse the opportunities
accompanying digital development. Populist,
nationalist and reactionary movements are
gaining inuence by challenging democracy
and undermining the open pluralistic
democracy based on the rule of law,
free media as well as on human rights
and freedoms.
1.2 A changing media landscape
Our new media landscape allows more
people to express themselves and make
their voice heard. From having previously
been a medium for spreading and collecting
information, the internet and social media
are today interactive meeting places that
have fundamentally changed the way people
communicate with each other. Digital
8 Defending free speech
9 Defending free speech
development has thus created conditions
for a more open and inclusive democratic
discourse that can help to increase participation.
More people than ever have the opportunity
to express, spread and access different
opinions, ideas and information, but also
comment on, debate and form public
opinion. The creation of a text or lm is
possible with just a few clicks. This is a
positive development but it also has
its challenges.
A prerequisite for a functioning democracy
is the existence of independent media that
can freely convey societal information,
comprehensive news and investigative
journalism. In the report “A cross-cutting
media policy” (SOU 2016:80), the inquiry
describes a media industry under hard
pressure. Today, national and local news
media are nding it difcult to nance their
activities. In particular, the economic
challenges of the daily press have led to cuts.
More and more areas in Sweden are without
qualitative journalistic coverage. The
advertisement driven news media are facing
new challenges as the major global companies
and social media platforms gain ever greater
inuence. The global companies inuence
the dissemination of news, journalism and
societal information through algorithms that
steer the content of social media platforms.
People's media habits have moved towards a
more fragmented use of news and media.
Social media has facilitated news streams
that are customised to individual preferences
based on what the user has previously read
or viewed. When many people receive
customised streams and personalised news,
it might result in increasingly one-sided
information that conrms their own
opinions. These “lter bubbles” can serve to
increase polarisation in society. This trend
risks counteracting the enhanced opportunities
for the free formation of opinion provided
by digital development.
1.3 Sexism and racism in the public sphere
The threats and hatred found in the public
sphere and digital environments are reinforced
by gender-based threats and hatred, sexism,
racism and similar forms of hostility. Threats
and hatred suffered by women, girls and
LGBTI people are often linked to gender,
power and sexuality. For example, offences
that violate integrity directed against girls and
women are to a higher degree of a sexualized
nature than those directed against boys and
men. Violations such as unlawful threat and
molestation often have racist or homophobic
purposes. Similarly, people who debate
subjects such as feminism, gender, gender
equality and racism are often exposed to
threats and hatred. This exposure means that
certain voices risk being silenced and public
discourse risks being limited.
Digital development can be abused by those
with interests other than an open and
democratic society. Some forums on the
internet are dominated by sexist and racist
attitudes or violent extremist messages. These
messages, which have previously been aired in
closed contexts, are now disseminated via
comments elds and social media and thus
have a greater impact today than before.
1.4 The work to safeguard the
democratic discourse
The Government is implementing major
investments in our common welfare in order
to tackle the problems of polarisation,
segregation and unequal opportunities for
work, education, healthcare and housing.
Extensive investments have been made. For
example, as of 2017, the municipal level
receives SEK 10 billion annually to create
opportunities to, inter alia, employ more
people and strengthen healthcare, education
and social care. Investments in education are
being made, including “Collaboration for the
best school” and a new knowledge boost
programme for lifelong learning and higher
employment. Other examples of investments
are increased resources for the police, crime
10 Defending free speech
prevention, renovation of the public housing
programmes known as the Million Programme,
initiatives to reduce long-term unemploy-
ment, initiatives to strengthen the Social
Child and Youth Care, the appointment of a
Commission for Equity in Health, a national
coordinator and an agreement between the
Government and the Swedish Association
of Local Authorities and Regions for
mental health, as well as “Äga rum”, which
is an investment in art and culture in
socioeconomically vulnerable areas.
The Government is also implementing a
series of measures whose overall aim is to
safeguard the democratic discourse and the
open pluralistic society. The basis for not
allowing threats and hatred to grow and take
root lies in the wide-ranging efforts to
strengthen democracy, the preventive work
related to human rights and gender equality,
and in initiatives against sexism, racism,
discrimination, violent extremism and
terrorism. Today, several of these areas are
covered by action plans, strategies and
communications such as: “The Government's
strategy for national efforts with human
rights”, “Power, goals and agency – a
feminist policy for a gender-equal future”,
“A comprehensive approach to combat
racism and hate crime – National plan to
combat racism, similar forms of hostility and
hate crime”, “Actions to Make Society More
Resilient to Violent Extremism” and
“Prevent, preempt and protect – the Swedish
counter-terrorism strategy”. Central policy
areas are media policy, which promotes
independent media, and cultural policy,
which works for culture to be a dynamic,
challenging and independent force. The
issues are global, and the Government works
accordingly at the international level within,
e.g. the EU, the Council of Europe, UNESCO
and other relevant UN bodies in order to
strengthen human rights and promote
freedom of expression, among other things.
In order to counteract exposure to threats
and hatred in the public sphere, especially on
the internet and in social media, the
Government is implementing a series of
specic measures. Below follows a brief
presentation of four of the most important
measures: preventive work against racism,
sexism and violent extremism, improved
source criticism, support for civil society
and dialogue with internet companies
and providers.
1.4.1 Counteracting sexism, racism and
violent extremism
In the public sphere, it is important to
expose, challenge and counteract threats and
hatred that are expressed through gender-
based threats and hatred, sexism, racism and
similar forms of hostility towards people
who are perceived to violate the norms
of society.
In order to counteract hatred and
threats that are sexist and gender-based,
the Government is working to promote a
gender equality perspective in all preventive
efforts, not least with regard to destructive
masculinity norms in physical and digital
environments. In its communication
“Power, goals and agency – a feminist policy
for a gender-equal future” (2016), the
Government presents, inter alia, a national
strategy to prevent and combat men’s
violence against women.
The Government is also working against
racism and hate crime. In the Government's
national plan, “A comprehensive approach to
combat racism and hate crime – National
plan to combat racism, similar forms of
hostility and hate crimes” (2016), the
Government identies ve strategic areas for
improving the protection against racism,
similar forms of hostility and hate crime.
One of these strategic areas is strengthening
preventive measures online. The Governme-
nt has, inter alia, commissioned the Swedish
Media Council to map the protection of
children and young people on the internet
with regard to racism, similar forms of
hostility, hate crime and extremism. The
11 Defending free speech
A limited democratic
discourse ultimately
leads to a less eective
democracy.
12 Defending free speech
Swedish Media Council has also been
commissioned to run the campaign “No
Hate Speech Movement” up until the end of
2020. The aim of this campaign is to raise
awareness among children and young people
about racism and similar forms of hostility
on the internet. Similar forms of hostility
can nd expression through sexism, homop-
hobia, biphobia, transphobia and ableism. In
the autumn of 2017, the Government will
convene a dialogue with relevant actors to
discuss how to prevent and counteract
racism and similar forms of hostility and
hate crime on social media, among other pla-
ces. The Living History Forum has produ-
ced the course “Counteracting racism and
xenophobia in preschool and school” and is
also working to develop a digital teaching
resource for source criticism and the use of
history for teachers.
The Government has reported on important
parts of the work currently in progress
to safeguard democracy against violent
extremism in its communication “Actions
to make society more resilient to violent
extremism” (2015). The most important
preventive initiative in progress is the
Government's commission to the National
Coordinator to safeguard democracy against
violent extremism (ToR 2014:103 with
supplementary terms of reference). In
addition, several new commissions have
been deployed to further strengthen the
preventive work. One example is the
Swedish Defence Research Agency’s (FOI)
commission to map and analyse violent
extremist propaganda on the internet and in
social media. Two reports have been
produced so far: “Hate messages and violent
extremism in digital environments” (2017)
and “The Digital Caliphate. A study of
propaganda from the Islamic state” (2017).
1.4.2 Improved source criticism
To an ever-increasing extent, the knowledge
society requires our ability to interpret
information. A critical and conscious
attitude to media and information is an
important prerequisite for a functioning
democratic discourse that allows people
to participate on equal terms. Digital
transformation, which means that everyone
can produce content and share the online
content of others, places great demands on
media and information literacy. Media and
information literacy (MIL) involves the
knowledge and skills that individuals need
to critically examine, evaluate and produce
information digitally. Without the ability to
evaluate sources of information, it can be
difcult to separate facts and independent
reporting from false news and disinformation.
School initiatives for source criticism and
digital literacy are crucial. For this reason,
the Government decided earlier this year to
strengthen digital literacy in curricula and in
learning outcomes and individual course and
subject syllabi. Commissioned by the
Government, the National Agency for
Education also offers support for teachers,
school librarians and other school staff to
work with critical and safe use of the
internet. The Swedish Media Council is
commissioned to empower children and
young people as conscious media users and
to protect them from harmful media
inuences. The Government has strengthened
the Council with increased funding. Among
other things, the Swedish Media Council has
produced and developed the digital educational
resource “MIL for me” and educational
materials about propaganda and the power
of images, which is intended for children
and young people.
Well-developed reading skills are fundamental
to people's ability to fully participate in the
democratic discourse. The Government has
therefore implemented several reading
promotion initiatives and appointed a
Reading Delegation. In the public sphere,
libraries are an important meeting place
for people. Libraries are to promote the
development of our democratic society by
contributing to the conveying of knowledge
and the free formation of opinion. Public
13 Defending free speech
libraries are to work particularly to increase
knowledge of how information technology
can be used for knowledge acquisition,
learning and participation by children,
young people and adults.
1.4.3 Support for civil society
Civil society organisations are central to our
democratic society and to the work against
threats, hatred and violations. Both established
and new initiatives are part of civil society
that aim to counteract threats and hatred.
Examples of established organisations in the
eld are the Internet Foundation in Sweden
(IIS), which works for a positive development
of the internet in Sweden, and the Swedish
Institute of Law and Internet, which works
against internet-related violations. Establis-
hed initiatives aimed at children and youth
include “Surfa Lugnt” (Safe Surng), which
raises the knowledge of schools and adults
regarding the everyday internet activities of
children and young people, and Friends,
which works against bullying in schools,
preschools and sports associations. Newly
formed initiatives that have had an impact in
social media include #jagärhär, which uses
positive messages to counteract hatred,
threats and violations on the internet.
The Government considers it urgent that
civil society be given conditions to work
against threats, hatred and violations. Funds
are allocated according to a number of
ordinances, for example, to support
organisations that prevent and counteract
discrimination, initiatives against racism
and similar forms of intolerance, preventive
initiatives against violent extremism as
well as initiatives against men’s violence
against women.
1.4.4 Dialogue with the global
internet companies
Electronic bulletin boards are today a major
and important arena for communication
between people on the internet and in social
media via e.g. social media platforms. The
responsibility of the service provider
enabling communication is regulated by the
Act (1998:112) on Responsibility for Electronic
Bulletin Boards (the BBS Act). There is an
obligation to provide information on who
operates a service, an obligation to supervise
the communication taking place by means of
the service and an obligation to remove or
prevent the dissemination of messages that
obviously entail certain listed offences.
Dialogue is in progress with representatives
of global internet companies at an international
level regarding opportunities for self-
regulation, i.e. a system for voluntary control
and moderation. Last year, the European
Commission presented an agreement with
Google, Facebook, Microsoft and Twitter
whereby these companies undertake to
expand their operations to remove illegal
hate speech from their platforms. The rst
year's operations were evaluated in May 2017.
The evaluation showed clear progress,
including the way in which the companies
handle the removal of hate speech. At
present, European legislation is also
being negotiated regarding an obligation
to ensure that video sharing platforms
have rules to protect the public against
incitement to violence and hatred in the
context of the AVMS Directive (Audiovisual
Media Services).
14 Defending free speech
2. A harsher climate for discussion and
debate and its consequences
Threats and hatred against those participating
in the democratic discourse are not a new
phenomenon. However, in the new media
landscape, digital development has made it
easier both to express and disseminate
threats and hatred. Greater visibility and
accessibility increases exposure. Today, many
people can have large quantities of hatred
directed against them, ever present via their
phone. Online abuse covers everything from
derogatory comments and harassment to
offences such as molestation and unlawful
threat. These violations tend to be more
gross and more extensive than ofine
violations. Threats and hatred on the internet
and in social media can arise suddenly, to a
great extent and risk remaining with us for a
long time.
All people are equally important in the
democratic discourse. Threats and hatred are
suffered by those who get involved and
debate various societal issues. For many,
threats and hatred are something they have
to relate to in their everyday lives. Some need
to take extensive security measures. The
hatred can have serious consequences for the
lives of individual people, but can also make
us passive in word and deed. Self-censorship,
adaptation and tendencies towards a norma-
lisation of threats and hatred are something
that a democratic society must view seriously.
In this action plan, the Government particularly
highlights the exposure of politically elected
representatives, journalists and artists to
threats and hatred.
2.1 Safeguarding key actors in the
democratic discourse
It is serious when actors who have key
functions in the democratic discourse are
exposed to threats and hatred. In their roles,
elected representatives, journalists and artists
support the infrastructure of the democratic
discourse. Therefore, in addition to affecting
individuals, threats and hatred also constitute
an attack on their roles as elected representative,
journalist or artist, and on their function as
an important voice in the democratic
discourse.
Politically engaged people enter elected
ofce in order to contribute to the upholding
and renewing of democracy. Their elected
ofce means that, through the political
parties, they represent citizens in the
political assemblies. For this reason, it must
be possible for elected representatives to be
open and accessible and to participate in the
public debate, not least for their voters and
for the citizens they represent.
Journalists report and investigate, and this
makes accountability possible and protects
society against the abuse of power. Journalists
need to be able to freely report on all issues
and to scrutinise public institutions or
those who exercise power. This helps people
to be well-informed and to participate and
demand accountability in society’s
democratic processes.
Artists examine, test, question and challenge
through their art. In doing so, they contribute
to the upholding of a democratic, vital and
open society. Sweden's professionally active
artists encompass both authors and perfor-
mers, among them writers and translators,
as well as artists in theatre, dance, lm,
music, image and form. If culture is to be a
dynamic, challenging and independent force
based on freedom of expression, it is
necessary to secure artistic freedom.
15 Defending free speech
New measures are
necessary in order to
reduce the exposure
of journalists, elected
representatives and artists.
They are actors in the
service of free expression
upon whom we all depend.
16 Defending free speech
Also bearing witness to various degrees of
threats, hate and violations are individual
opinion makers and representatives of civil
society organisations, such as interest groups
or trade unions, which in various ways
practise their freedom of expression by
commenting on society and contemporary
issues. They give voice to the needs, values
and interests of various groups, bringing
pressure to bear through their criticism of
the public exercise of power.
For a living democratic discourse, these
actors must be particularly safeguarded.
2.1.1 Elected representatives
The Swedish National Council for Crime
Prevention conducts “the Politician’s Safety
Survey” (PTU), which covers members of the
Riksdag and local government assemblies.
PTU 2015 (2015:23) shows that almost three
out of ten elected representatives were
exposed to harassment, threats or violence
during the election year 2014. Threats and
harassment are the most common, primarily
in the form of threats and attacks via social
media. Three groups of elected representatives
run a greater risk of exposure to threats,
violence or harassment: young elected
representatives, those who are more active
and elected representatives in metropolitan
municipalities. Elected representatives who
chair local government executive committees,
members of the Riksdag and full-time
politicians are also particularly exposed.
Women holding the post of chair, who are
known to the public or who are active or have
a presence on the internet or in social media,
are more exposed than men in the same
positions. For example, more than seven out
of ten female local government chairs were
exposed to threats, violence or harassment
in 2014.
Among these exposed elected representatives,
almost one third perceived the perpetrator to
come from a political extremist group. The
difference between the proportion of right-
wing and left-wing extremists was small. In
the rst instance, elected representatives felt
the perpetrator to be a displeased citizen or a
querulant, and a majority of the perpetrators
were perceived to be men. It is also not
unusual for the perpetrator to belong to the
same professional group as them. Among
elected representatives, 15 percent of the
incidents are attributed to another elected
representative.
Of all elected representatives, one in ve has
been inuenced in their commission by
exposure or concern about exposure to
threats, violence or harassment. Of the
elected representatives who have suffered
threats and hatred, the proportion of those
inuenced is twice as high, almost two in ve.
This inuence on elected representatives has
a variety of results, including that they have
avoided commenting on an issue, have
hesitated ahead of a measure, have considered
leaving or have left their commission, or have
adopted a decision different to what they had
originally intended. The most common
consequence of exposure or concern about
exposure is self-censorship.
The report “Threats and violence against
elected representatives” (2014), by the
Swedish Association of Local Authorities and
Regions (SALAR), shows that self-censorship
is a serious problem and that fear causes
elected representatives to change their
behaviour in everyday life. According to
SALAR, the elected representatives speak of
a normalisation of threats and hatred.
Among elected representatives, the inclination
to report exposure is low. According to PTU
2015, only one in ve incidents was reported
to the police. The foremost reasons for this
are that elected representatives do not believe
that a report will have any result or that the
incident has been perceived as a part of
the commission.
2.1.2 Journalists
The knowledge that currently exists about
the exposure of journalists in Sweden comes
17 Defending free speech
from several different surveys. On two
occasions (2013 and 2016), the University of
Gothenburg has used its Journalist Panel to
investigate the exposure of journalists to
threats and harassment. The investigations
show that almost every third journalist has
been exposed to threats over the past year. For
many journalists, insulting and derogatory
comments are also a part of their everyday life.
Journalists who are visible, have a high
prole and have prominent roles are
particularly exposed. This applies, for
example, to journalists working at the
evening newspapers and at morning news-
papers in metropolitan areas, editorial writers
and columnists, television presenters and
managers with overall responsibility. The
Journalist Panel shows that subjects invol-
ving, inter alia, feminism, gender, immigra-
tion, integration and racism often lead to
journalists being exposed to harassment.
It is far more common for journalists who
are women to be exposed to threats of sexual
violence and sexist violations than journalists
who are men. The report by the Swedish
Media Publishers’ Association and Klara K
“Threats against female opinion makers”
(2017), which is based on interviews with
women serving as opinion makers, colum-
nists or analysts, shows that the majority,
over 70 per cent of the women who work
with opinion journalism, has been exposed
to threats or harassment over the past
12 months.
According to the publishers’ association
Utgivarna’s report “Threats and hatred –
how the media is inuenced” (2016:01),
threats against editorial ofces have increa-
sed in scope. Almost half of the editorial
ofces had been threatened over the past
year, compared to one in three editorial
ofces the year before. Almost three quarters
of the editorial managers feel that the threat
scenario for their ofce had become greater
over the past ve years. Twelve of the most
serious threats were perceived to come from
private individuals and nine from right-wing
extremist organisations.
18 Defending free speech
According to the latest investigation in which
the Journalist Panel participated, just over
three in ten of the threatened journalists had
at some time refrained from covering certain
subjects or certain people/groups due to the
risk of being threatened. Of the threatened
journalists, one in six has considered leaving
the profession. Fewer than one third of the
threatened journalists has reported the
incidents to the police. Other protective
measures that have been taken involve
various ways to reduce their visibility and
vulnerability in the public sphere, e.g.
concealing personal data and obtaining
personal protection, moderating or closing
comments elds, or being more restrictive on
social media.
2.1.3 Ar tis ts
In its report “Threatened culture?” (2016:3),
the Swedish Agency for Cultural Policy
Analysis maps exposure to threats, harass-
ment, theft, violence or vandalism linked to
the professional practice of authors and
visual and design artists. One in six authors
and visual artists has been exposed to
threats, harassment, theft, violence or
vandalism over the past year. Almost one in
ve authors has been exposed to threats or
harassment, and about half of all threats are
received via the internet. What characterizes
artists as a group is that almost one tenth has
been exposed to violence, theft or vandalism
of artistic works. This is often a case of property
offences, e.g. with regard to public art.
Among artists, those who are known to the
public or aspire to be social critics are
particularly exposed. This also applies to
artists who are active in digital channels and
those who have a media presence. The
difference in the proportion of affected men
and women is small. Artists with a foreign
background are among those particularly
exposed. The perpetrator is usually perceived
to be a person who is opposed to the artist's
work or a generally angry or displeased person.
One in four exposed artists states that the
perpetrator was a representative of a political
organisation or a private individual with
political motives, often in the form of a
right-wing extremist or racist grouping.
Among the exposed artists, many feel that
their artistic freedom has been curtailed in
some sense. As a result of exposure or
concern about exposure, one third has
considered either leaving an assignment or
not working in a certain eld, and 14 per cent
have left or not accepted a particular assign-
ment. Few artists report incidents to the
police. One in three reports violence,
vandalism and theft, and one in ten of those
affected has reported threats. The reason for
this is that they do not believe a police report
will have any result, that the incident is
perceived to be a petty matter or that those
exposed have themselves handled the incident.
There are several reports contributing to a
broader and deeper understanding of
exposure within the arts. The Swedish Arts
Grants Committee's report “Working
environment of artists” (2017) examines the
situation of artists within all areas of art: ima-
ge and form, dance, lm, music, words and
theatre. Almost one in ten artists has been
exposed to sexual harassment, threats or
physical violence over the past year. Among
those exposed, more than one third has
refrained from artistic activities such as
performances, publication and participation.
The report “Hosts or guards?” from the
Swedish Agency for Cultural Policy Analysis
(2016:4) states, inter alia, that artists or
artistic works about racism, as well as queer
and feminist works, tend to be the subject of
threats and hatred. In its report “Exposed
museums?” (2017:01), the Swedish Agency for
Cultural Policy Analysis maps the occurrence
of vandalism, violence and threats directed
against museums and museum authorities. It
shows, inter alia, that the staff at every third
museum has at some time been exposed to
violence and threats in 2015.
19 Defending free speech
2.1.4 Opinion makers
In an appendix to its report “Swedish
democracy trends” (2017), the SOM Institute
at the University of Gothenburg investigates
participation in the democratic discourse.
The investigation shows that 43 per cent of
the Swedish population aged 16 to 85 express
an opinion on a societal issue at least once a
week in public contexts. Of these, 15 per cent
have been exposed to threats, harassment or
violence over the past year. Of those expressing
opinions on societal issues at least once a
week on the internet and in social media, 24
per cent state that they have been exposed to
threats, harassment or violence over the past
year. The results do not indicate any differences
in the proportion of women and men who
have been exposed. In general, younger
people are more exposed than older people,
and those who have grown up outside
Sweden are more exposed than those who
have grown up in Sweden.
The SOM survey shows that 10 per cent of
those who have expressed an opinion at least
once a week as part of their involvement in a
NGO have been exposed to threats, harass-
ment or violence over the past 12 months.
The result reects the situation for ordinary
members who are active across all types of
associations. The result also shows a discernible
link between how active individuals are in
expressing opinions in public as part of their
association involvement and the extent to
which they have been exposed to threats and
hatred. Among those who are more active
and express opinions several times a week as
part of their involvement in an association or
organisation, 20 per cent have been exposed
to threats, harassment or violence.
20 Defending free speech
Three out of ten elected
representatives have
been exposed to
harassment, threats
or violence. Every third
journalist has been
threatened. One in six
artists suers threats,
harassment, theft,
violence or vandalism.
21 Defending free speech
3. The work of the judicial system to
safeguard the democratic discourse
Society must take measures to safeguard
people's opportunities to participate in the
democratic discourse. In order to safeguard
the democratic discourse, it is the Government's
belief that it is necessary to strengthen
prevention, develop law enforcement and
modernise legislation.
The judicial authorities need to contribute
to counteracting threats and hatred in the
public sphere. These authorities must handle
cases of threats and hatred in a manner that
inspires condence. The judicial system's
contacts with people exposed to threats and
hatred in their role as, for example, elected
representative or journalist need to function
well. Since exposure has gender-related
differences, it is important for the work
to take into account a gender equality perspective.
The ability to clear offences concerning threats
and violations on the internet must also
improve. Procedures for handling threats and
hatred against those participating in the
democratic discourse need to be developed,
and the competence of the judicial system in
this area needs to be improved.
All measures that are currently being taken
within the judicial system have a high priority.
The entire judicial system should have know-
ledge of these democracy problems and an
ability to handle them, not least in connection
with registering police reports. The Govern-
ment intends to monitor the work of the
Swedish Police Authority and the Swedish
Prosecution Authority in the area to ensure that
this continues and develops and to assess any
needs for further measures in the area.
3.1 The Government is strengthening
the work of crime prevention
The Government is creating better conditions
for crime prevention work throughout
Sweden. This applies both to the judicial
authorities and to municipalities, companies
and organisations.
The Government has implemented the
following measures:
• The Government has adopted the crime
prevention programme “Combating crime
together” (Comm. 2016/17:126) with crime
prevention objectives for all policy areas.
The objective of the Government's new
crime prevention programme is to create
conditions for structured and long-term
work with crime prevention throughout
society.
• The Government has also increased the
responsibility of the Swedish National
Council for Crime Prevention for
support and coordination at the national
level and has established regional
coordinators at the county administrative
boards.
3.2 The Swedish Police Authority protects
the fundamental rights and freedoms
The Swedish Police Authority plays an
important role in the work against offences
that threaten the fundamental rights and
freedoms and the free formation of opinion.
In 2015, the National Police Commissioner
raised the Authority's level of ambition in
order to better protect the fundamental rights
and freedoms.
The Swedish Police Authority’s work has
included clarifying that at a suspicion of crime
with the intent to inuence the free formation
of opinion, special attention shall be given to
whether it is a question of serious threats or
harassment that can lead to an elected repre-
sentative, a journalist or other opinion maker
refraining from operating in the public sphere.
22 Defending free speech
The Swedish Police Authority has
strengthened the work in several areas:
• Offences that threaten the fundamental
rights and freedoms and the free formation
of opinion shall be investigated by the
Swedish Police Authority’s democracy
and hate crime units where these exist,
or handled in a particular order. The
democracy and hate crime units and
other allocated resources are to support
the local police districts to prevent crime,
conduct training and build trust.
• The Swedish Police Authority is currently
investing in internal training to increase
its skills and knowledge regarding
offences concerning fundamental rights
and freedoms. A web-based training
programme is being developed for
distribution to all police employees
who might come in contact with these
matters, e.g. those registering reports
and other staff. The purpose of this
training is to provide support both
in criminal investigations and in the
condence-building initiatives.
• The Swedish Police Authority's crime
victim and personal security division
(BOPS) is available in all police regions
and is responsible for providing support
to exposed victims. BOPS has contact
with those responsible for security at the
media houses and for local politicians in
the respective regions. BOPS can offer
personal protection to those who are
threatened and collaborate with other parts
of the Swedish Police Authority when there
is a need for particular measures concer-
ning victim support or personal protection.
• The Swedish Police Authority has a
Development Centre (UC) for every
police region, each having designated
national areas of responsibility. UC
Stockholm’s responsibility includes
offences that threaten fundamental rights
and freedoms and thus has a particular
responsibility for national contacts with
organisations representing exposed
groups. In autumn 2015, a consultation
forum was established for this purpose.
In this and other forums, the Authority
meets with representatives from, e.g. the
media industry and party organisations
to exchange experience on a regular basis
and to improve operational collaboration.
UC Stockholm also convenes the
Swedish Police Authority’s internal
networks for those working with demo-
cracy and hate crime. All police regions
have contact persons who, in turn, are in
contact with UC Stockholm.
• The Government intends to particularly
monitor the Swedish Police Authority's
work in the area. In the Swedish Police
Authority's appropriation directions for
2018, the Government intends to require
the Authority to report back on the
measures it has taken as a result of
raising its level of ambition and to present
arguments concerning the effects those
measures are assessed to have had or will
have and how this work will continue to
be developed. It is particularly important
that contact has been established between
local media actors and the Swedish
Police Authority.
3.3 The Swedish Police Authority and the
Swedish Prosecution Authority improve
the conditions for investigation and legal
proceedings
In addition to the Swedish Police Authority’s
work for the fundamental rights and
freedoms, further work is being done by the
judicial authorities to improve the conditions
for investigation and legal proceedings. One
target group receiving attention in this
development work is elected representatives.
In June 2014, Chief Public Prosecutor
Torsten Angervåg submitted to the Govern-
ment a survey and analysis of how the courts
assess the penal value of offences against
elected representatives. The survey indicated
the need to develop the work to strengthen
the procedures of the Swedish Police
23 Defending free speech
24 Defending free speech
Authority and the Swedish Prosecution
Authority regarding how they receive
victims and register reports, in order to
speed up investigation and legal procee-
dings. Such development work could also
have effects on investigation and legal
proceedings regarding offences against
journalists and other opinion makers.
The development work of the Swedish Police
Authority and the Swedish Prosecution
Authority regarding investigation and legal
proceedings also includes the following
initiatives:
• The Swedish Police Authority is conducting
work to design procedures that are
intended to be used for taking reports
concerning incidents where a political
link or a political motive is suspected.
The person reporting the incident is to
be asked whether the incident might have
a political link, and the report is access-
protected where necessary. The Swedish
Police Authority's crime victim and
personal security division has coordinators
in all police regions. These conduct
outreach activities to build relationships
with elected representatives. Among
other things, the coordinators inform the
elected representatives of the importance
of reporting any suspicion that the
incident might have taken place on
account of their political engagement.
• Since 2016, the Swedish Prosecution
Authority’s development centre in Malmö
has been conducting a development
project focusing on offences concerning
threats and violence against elected
representatives. The purpose is to
streamline preliminary investigations and
thereby create conditions for greater
uniformity and legal security in law
enforcement and to ensure that the
offences are punished adequately.
3.4 Initiatives of the Swedish Police
Authority and the Swedish Prosecution
Authority against cybercrime
Like other cybercrime, threats on the
internet and social media have risen sharply
over the past ten years. Digital development
and increased internet use have had a major
impact on the work of authorities conducting
criminal investigations. Keeping pace with
this development places entirely new
demands on competence and capacity
regarding cybercrime.
Several measures are being implemented at
the Swedish Police Authority and the Swedish
Prosecution Authority:
• On 1 October 2015, a national cybercrime
centre was established at the Swedish
Police Authority. The aim of the cybercrime
centre is to strengthen the ability to
combat cybercrime. The cybercrime
centre is an expert resource whose
responsibility includes increasing the
dissemination of knowledge within the
Swedish Police Authority, which is
intended to increase the overall level of
knowledge at the Authority.
• Work is in progress at the Swedish Police
Authority to produce national guidelines
and methods for combating cybercrime.
• The Swedish Prosecution Authority has
produced a new legal memorandum on hate
crime that includes guidance on the practical
handling of hate crime on the internet.
• One of the issues of precedent that the
Swedish Prosecution Authority is also
prioritising in 2017 is the penal value of
gross defamation, particularly young
people's online exposure and the dissemi-
nation of photographs via mobile phones.
• Through its appropriation directions for
2017, the Swedish Prosecution Authority has
been commissioned to report on the
measures that have been taken to strengthen
the Authority's ability to intervene against
threats and violations on the internet.
25 Defending free speech
3.5 The Government is strengthening the
criminal law protection
The Government has conducted work to
better adapt the penal regulations to digital
development. This development has led to
threats and other violations of personal
privacy taking on new forms. In order to
better counteract threats and violations, in
both digital and physical environments, it is
necessary to adapt the penal regulations to
the problems that are relevant today. The
regulations need to encompass new means
of communicating and phenomena that did
not exist when the legislation was introduced.
In May 2014, the Government decided to
commission an inquiry to conduct a broad
review of the protection provided by
criminal law individuals personal privacy,
particularly with regard to threats and other
violations (ToR 2014:74). In February 2016,
the Government received proposals on how
the legislation can be amended and moderni-
sed in the report “Privacy and penal protec-
tion” (SOU 2016:7). The legislative propo-
sals include offences, defamation and
insulting behavior, and the crimes against
liberty and peace, i.e. unlawful threat and
molestation, as well as the responsibility for
those who provide electronic bulletin
boards. The inquiry also proposes the
introduction of a new provision in the
Swedish Penal Code entailing a criminal
liability on unlawful violation of privacy by
spreading images or other information that
are sensitive in terms of privacy.
In a proposal referred to the Council on
Legislation for consideration on 8 June 2017,
the Government has proposed that the penal
protection of personal privacy be enhanced
and modernised. The Government’s propo-
sal includes the introduction of a new
offence – unlawful violation of privacy –
which makes it punishable to violate someo-
ne else's private life by spreading certain
kinds of images or other information that
are sensitive in terms of privacy. The
Government also proposes that the penal
provisions for unlawful threat, molestation,
gross defamation and insulting behaviour be
claried and modernised. The provision on
unlawful threat is also expanded to make it
punishable to threaten someone with several
types of criminal acts, e.g. threats to spread
images of someone´s naked body. The provi-
sion on molestation is also expanded. It is
proposed that criminal liability under the BBS
Act is expanded to also encompass messages
that obviously contain unlawful threats or
unlawful violation of privacy. Most of the
amendments are proposed to enter into force
on 1 January 2018.
26 Defending free speech
4. The Government is strengthening
the preventive work against exposure
to threats and hatred
Safeguarding the democratic discourse is a
shared responsibility. All those participating
in the public debate need to take responsibi-
lity for counteracting exposure to threats
and hatred. This applies to the Government,
the judicial system and other government
agencies, employers, civil society organisa-
tions and individuals.
Extensive work is being done to protect the
democratic society, both through preventive
work to strengthen democracy, (Section 1.4)
and also through measures undertaken by
the judicial authorities (Section 3). The
Government is now commencing a more
systematic effort to prevent exposure of key
actors in the democratic discourse – elected
representatives, journalists and artists – to
threats and hatred. The ambition is to reduce
exposure using targeted measures with
respect to elected representatives, journalists
and artists, and through basic support relating
to all those participating in the democratic
discourse. It is important that particular
exposure and a gender equality perspective be
taken into account in order to improve the
understanding of differences in exposure and
to be better able to counteract exposure.
The objective of the Government's work in
the area is to help increase knowledge about
threats and hatred against those participating
in the democratic discourse, to improve
access to support for actors who are, or risk,
being exposed, and to increase awareness of
the issue and the preventive work.
The Government's measures are focused on
six areas:
• Deeper knowledge of threats and hatred
• Basic support for all those exposed
• Stronger support for elected representatives
• Stronger support for journalists
and editorial ofces
• Stronger support for artists
• International cooperation for the
protection of journalists and artists
The measures being implemented by the
Government are based on the knowledge
currently available about the exposure of
actors in the democratic discourse (Section
2.1). The Government Ofces has also had
contacts with relevant actors ahead of
producing this action plan. In 2016, the
Government conducted a number of
round-table discussions – “United against
threats and hatred” – to collect experiences
of exposure to threats and hatred and to
establish what initiatives that are needed.
This dialogue will continue.
4.1 Deeper knowledge of threats
and hatred
Knowledge of how exposure to threats and
hatred manifests itself, of which participants
in the democratic discourse that are particularly
exposed and of the consequences exposure has, is
crucial for the work to be efcient. The
exposure of key actors needs to be monitored
over time, and knowledge in the area needs
to be developed.
The reports published so far provide a solid base
for this. Commissioned by the Government, the
Swedish National Council for Crime Prevention
(Brå) has mapped the exposure of elected
representatives to threats, violence and harass-
ment in the Politician’s Safety Survey (PTU) on
three occasions (2012:14, 2014:9 and 2015:23).
Using its Journalist Panel, the University of
Gothenburg has conducted two investigations
into threats and violations against journalists
(2013 and 2016). The Swedish Agency for
Cultural Policy Analysis (2016:3, 2016:4 and
2017:1) and the Swedish Arts Grants
Committee (2017) have published several
reports on threats and hatred against artists.
27 Defending free speech
The Government is
commissioning the
University of Gothenburg,
Linnæus University, the
Swedish Arts Grants
Committee, the Swedish
Crime Victim Compensation
and Support Authority, the
Swedish National Council
for Crime Prevention
and the Swedish Police
Authority – and is funding
SALAR and Victim Support
Sweden – to strengthen
the work against threats
and hatred.
28 Defending free speech
The Government is implementing the
following measures:
• The Swedish National Council for
Crime Prevention has been commissioned
by the Government to conduct the
Politician’s Safety Survey (PTU) for the
year between election years, 2016. The
survey will also be conducted for the
election year 2018.
• The University of Gothenburg has been
commissioned by the Government to
further develop its survey of threats and
hatred against journalists.
• As of 2017, the SOM Institute at the
University of Gothenburg analyses the
scope of the democratic discourse and
the extent to which those participating in
the discourse have been exposed to
threats and hatred.
• The Swedish National Council for Crime
Prevention's Swedish Crime Survey (SCS),
which is conducted annually, has undergone
development in 2016–2017 to better
capture phenomena that can be described
as online abuse.
4.2 Basic support for all those exposed
All those who use their freedom of expression
are to have access to support if they are
exposed to threats and hatred. Today, there
are great variations in terms of the support
that elected representatives, journalists,
artists, individual opinion makers, civil
society organisations and others participating
in the democratic discourse have access to.
The support is partly dependent on whether
individuals participate in the democratic
discourse as part of their employment and
on the employment conditions they have.
It is therefore important to develop basic
initiatives that increase awareness of the
available support, that are accessible to all
and that help individuals to handle their
exposure. In addition to this basic support
for all those participating in the democratic
discourse, there is also a need for targeted
initiatives with respect to specic groups
(Sections 4.3–4.5).
The Government is implementing the
following measures:
• The Swedish Crime Victim Compensation
and Support Authority is being commis-
sioned by the Government to produce a
training and information resource
concerning support for those participating
in the democratic discourse who are
exposed to threats and hatred. The
resource is intended to be used by
government agencies and organisations
that need better tools to support those
exposed, but also by private individuals
who are exposed to threats and hatred in
the public debate.
• The Government is granting Victim
Support Sweden funds to develop and
strengthen the organisation’s support for
individuals who are exposed to threats
and hatred in connection with their
participation in the public discourse.
Victim Support Sweden is to develop the
support it provides to people who are
exposed to threats and hatred. The work
is to be done through the national helpline
and through local victim support centres.
• In 2018, the Government will be enhancing
the opportunities to seek support for
non-governmental initiatives that help to
prevent threats and hatred against the
democratic discourse, e.g. to develop guides
and guidelines, action programmes,
training and experience exchange.
4.3 Stronger support for elected
representatives
The work being done to prevent and handle
threats and hatred against elected representatives
needs to be strengthened. Responsibility for
the work environment of elected representatives
at the local level is currently divided between
the municipality or county council and the
political parties. A large proportion of
elected representatives do not receive the
29 Defending free speech
support they need, and many are unaware
of whether there are action plans or a
security ofcer to turn to. Many local
governments therefore need to develop
their work to prevent and handle threats and
hatred against elected representatives. In this
development work, it is important that
local governments in their turn have access
to support.
The Government is implementing the
following measures:
• The Government has allocated funding
to the Swedish Association of Local
Authorities and Regions (SALAR) in
order to support and develop the
systematic work of municipalities and
county councils to combat threats and
hatred against elected representatives in
2017. Among other things, SALAR is to
constitute a more operational support for
the local level, adapted with reference to
local conditions.
• In 2017, the Government is inviting the
Riksdag parties’ security ofcers to a
dialogue on threats and hatred against
elected representatives. The meeting will
be a starting point for the 2018 elections
and a follow-up to the meeting with the
parties in 2016.
• The Government will investigate the
possibility of strengthening the criminal
law protection for elected representatives.
This investigation is to supplement the
decision-making documentation in the
inquiry “The pursuit of power” (SOU
2006:46). The inquiry contains proposals to
strengthen the criminal law protection for
elected representatives. The parliamentary
committee's assessment at that time was
that offences against elected representatives
occur to such an extent that this may be
considered to constitute a threat to the
representative democratic system.
4.4 Stronger support for journalists
and editorial oces
Support for journalists and editorial ofces
to prevent and handle threats and hatred
needs to be improved. Journalists are a
heterogeneous group as regards working and
employment conditions. Many are
self-employed and take on freelance work,
temporary assignments or xed-term
employment and thus have no permanent
support from an employer. Combined with
the fact that media actors that are not
well-established might have limited opportu-
nities for working with security and safety
issues, this means that the support currently
offered to journalists varies in individual
cases. To reduce the exposure of journalists
and editorial ofces to threats, it is impor-
tant that initiatives to increase competence
and capacity are available and that they reach
target groups in need of support, e.g.
freelancers, small editorial ofces and
smaller production companies.
The Government is implementing the
following measures:
• As part of its continuing professional
training for journalists, Linnæus University
has been commissioned to develop
initiatives to increase competence and
capacity with respect to the prevention
and handling of threats and hatred.
These initiatives are to reach journalists
and editorial ofces, not least freelancers,
small ofces and smaller production
companies that have limited opportunities
to work with security and safety issues.
The commission includes building up a
knowledge centre and a service offering
advice as well as support adapted to the
target group.
• Together with the Swedish Police Authority,
the Government will invite relevant actors
to a dialogue on how to develop the
Authority's work in relation to journalists
and editorial ofces. The reason for this is
that many actors in the media industry have
stated that their contacts with the police
need to be improved.
30 Defending free speech
4.5 Stronger support for artists
Support for artists who are exposed to
threats and hatred needs to be developed. As
most artists and authors are self-employed,
they often lack the support and protection
that covers employees. Support for exposed
artists can be impeded by an unclear division
of responsibilities between artist and client.
Factors such as human and nancial resources,
as well as previous experience and knowledge,
are signicant to the support that clients and
organisers offer. There is a need for easily
accessible support for exposed artists and
authors, but also initiatives for clients
and organisers.
The Government is therefore implementing
the following measures:
• Since 2017, the Swedish Arts Grants
Committee has had a special commission
to develop forms for providing support
to exposed artists. As part of this
commission, the Committee is working
to produce a web-based guide for
providing support to artists regarding
threats, hatred, violence, harassment and
discrimination. The guide offers material
including information on work environment
issues and what an exposed artist can do
in the event of threats and hatred.
To develop this work, the Swedish Arts
Grants Committee is receiving extra
funding for 2017.
• In November 2016, the Government
appointed an inquiry (ToR 2016:93) to
review the conditions for artists. The
inquiry chair is to conduct a broad review
of the central government initiatives and the
conditions for professionally active artists.
4.6 International cooperation for the
protection of journalists and artists
Sweden aspires to be a strong voice in the
world, promoting freedom of opinion,
freedom of expression and media freedom,
and contributes to secure the safety of
journalists and artists. Examples of important
actors and arenas are the UN, UNESCO,
the European Union and the Council of
Europe. Sweden's development cooperation
contributes to, inter alia, increasing the
safety of journalists and to prevent journa-
lists and artists from being exposed to
arbitrary detention. The Council of Europe's
work in this area focuses on promoting
freedom of expression in accordance with
Article 10 of the European Convention. In
2016, the Council of Europe adopted
recommendations for the protection of
journalists. Sweden plays its primary role
within the Council of Europe through the
Steering Committee on Media and Information
Society (CDMSI). Through its participation
in CDMSI, Sweden is for example able to
inuence other countries in issues relevant
to the safety of journalists. UNESCO is the
UN organisation mandated to pursue issues
of press freedom and freedom of expression,
media development and the safety of
journalists. Within UNESCO, Sweden is one
of the countries most active in raising the
issue of freedom of expression and the safety
of journalists. Sweden supports UNESCO's
work in terms of policy, advocacy and
nances. Sweden will continue to
contribute actively to the implementation of
the “UN Plan of Action on the Safety of
Journalists and the Issue of Impunity”
adopted by the UN in 2012.
The Government is implementing the
following measures as part of its
international cooperation:
• In multilateral forums such as UNESCO,
Sweden will continue to raise issues of
freedom of expression and press free-
dom, and of the safety of journalists and
artists. Sweden will particularly highlight
issues of threats against the safety of
female journalists, including exposure to
threats and hatred.
• Through Sida, Sweden has contributed
funding to UNESCO which includes
major support for UNESCO's work with
press freedom and freedom of expression.
This covers gender equality issues and
support for the right of journalists and
artists to freedom of expression.
• The Government will continue to
promote the work to create cities of
refuge for persecuted journalists and
artists. The Swedish system for cities
of refuge has been expanded via the
Swedish Arts Council. Sweden now has
more cities of refuge than anywhere
else in the world, to which artists and
journalists are invited by a Swedish
municipality orcounty council on account
of persecution in their home country.
Defending free speech 31
Ministry of Culture
SE-103 33 Stockholm
Sweden
Switchboard: +46 8 405 10 00
