Defending free speech – measures to protect journalists, elected representatives and artists from exposure to threats and hatred Content

Preface ...... 3 3. The work of the judicial system to Summary – safeguarding the safeguard the democratic discourse ... 21 democratic discourse ...... 5 3.1 The Government is strengthening the work of crime prevention ...... 21 1. The democratic discourse ...... 6 3.2 The Swedish Police Authority protects 1.1 Polarisation creates tensions ...... 7 the fundamental rights and freedoms 21 1.2 A changing media landscape ...... 7 3.3 The Swedish Police Authority and the 1.3 Sexism and racism in the Swedish Prosecution Authority public sphere ...... 9 improve the conditions for 1.4 The work to safeguard the investigation and democratic discourse ...... 9 legal proceedings ...... 22 1.4.1 Counteracting sexism, racism and 3.4 Initiatives of the Swedish Police violent extremism ...... 10 Authority and the Swedish Prosecution 1.4.2 Improved source criticism ...... 12 Authority against cybercrime ...... 24 1.4.3 Support for civil society ...... 13 3.5 The Government is strengthening 1.4.4 Dialogue with the global the criminal law protection ...... 25 internet companies ...... 13 4. The Government is strengthening 2. A harsher climate for discussion the preventive work against exposure and debate and its consequences ...... 14 to threats and hatred ...... 26 2.1 Safeguarding key actors in the 4.1 Deeper knowledge of threats democratic discourse ...... 14 and hatred ...... 26 2.1.1 Elected representatives ...... 16 4.2 Basic support for all those exposed ...28 2.1.2 Journalists...... 16 4.3 Stronger support for elected 2.1.3 Artists ...... 18 representatives ...... 28 2.1.4 Opinion makers ...... 18 4.4 Stronger support for journalists and editorial offices ...... 29 4.5 Stronger support for artists ...... 30 4.6 International cooperation for

Photo the protection of journalists Cover: Johnér and artists ...... 30 Page 3: Kristian Pohl Page 8: Maskot, TT Page 17: Roger Turesson, TT Page 23: Maja Suslin, TT Page 25: Joachim Belaieff, Folio Page 30: Jeppe Wikstrm, Johnér

Article: Ku18.01.

Read, download and share this action plan at government.se Preface

Freedom of expression is statutory in Sweden. The Government believes that everyone has Our public discourse rests on this freedom, a responsibility to respect their ideological which is the foundation of a living democracy. opponents. Our public discourse is everyone's discourse. This is why we are joining forces But what are the actual circumstances for to defend free expression. being able to exercise freedom of expression? The risk of exposure to hatred and threats More knowledge and cooperation, combined has increased in pace with the polarisation of with new measures, are necessary in order our society. The conditions for being seen to reduce the exposure of key actors in the and heard and for communicating with each democratic discourse – journalists, elected other have changed. The digital transformation representatives and artists – actors in the brings great opportunities, but also challenges. service of free expression upon whom we While more people are able to express all depend for an open and lively democratic thoughts and ideas, it is not a given that discourse. 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-.

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 firmly anchored decisions Alice Bah Kuhnke about how our society is to develop. Minister for Culture and Democracy

Defending free speech 3 Our public discourse is everyone's discourse. This is why we are joining forces to defend free speech. Summary – safeguarding the democratic discourse

In order to safeguard democracy, it is crucial The first section of the action plan provides that society creates conditions for an open a situational assessment of the challenges and inclusive public discourse. accompanying polarisation and a changing media landscape, and the opportunities that The Government is therefore commencing a digital development entails for the democratic more systematic effort to safeguard – and discourse. The Government is already thereby strengthen – the democratic discourse implementing a number of preventive against threats and hatred. The work conducted measures to help safeguard the democratic by the judicial authorities is of importance, but discourse and counteract exposure to threats not enough to protect the democratic discourse. and hatred in the public sphere. These are Society needs both wide-ranging efforts to described in Section 1.4. strengthen democracy and targeted measures to prevent threats and hatred against the key The second section of the action plan, actors in the democratic discourse. This action concerning the tougher climate for discus- plan, issued by the Swedish Government, is sion and debate, describes the exposure of specifically intended to safeguard politically elected representatives, journalists, artists elected representatives, journalists and artists and opinion makers to threats and hatred. as a part of the infrastructure of the democratic The third section presents initiatives by the discourse. These actors are particularly judicial system to strengthen the work exposed due to the functions they have against offences that threaten the fundamental in society. rights and freedoms. The fourth and final section presents the Government's measures Based on integrated knowledge, the to prevent threats and hatred against the key Government presents ongoing as well as actors identified. 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.

Defending free speech 5 1. The democratic discourse

Freedom of expression and respect for free Argumentation and a democratic discourse speech are fundamental in a democratic have been important since the birth of society. Freedom of expression is regulated democracy. The Government views the in our fundamental laws – the Instrument democratic discourse as an open, common of Government, the and continually ongoing exchange of views Act and the Fundamental Law on Freedom and knowledge between people in the public of Expression. Freedom of expression is also sphere. It is predicated on people becoming incorporated in the European Convention on engaged in societal issues, seeking, receiving Human Rights, the Charter of Fundamental and disseminating knowledge, exchanging Rights of the European Union and the opinions, adopting perspectives and International Covenant on Civil and forming opinion directed towards the public Political Rights. Freedom of expression, the arena. Participants in the democratic free formation of opinion and respect for discourse might be people who participate human rights are essential for everyone – individually or together with others in women, men, girls, boys and people with forms such as networks, organisations another gender identity – in order to have and parties. the opportunity to express opinions, influence society and participate in the The democratic discourse can take place in democratic discourse. both digital and physical environments, at multiple levels and with regard to different The starting point for the Government's types of issues. Such discourse can for democracy policy is the existence of positive example take place at meetings, seminars conditions for all people to put forth their and conferences, within cultural institu- opinions. The goal is a living democracy tions, in the news media and social media, that empowers citizens to take part. In in comments fields or in other discussion addition to the general elections that are forums. It can take place locally, nationally foundational to a representative democracy, or internationally. The discourse might there must be equal opportunities for involve a distinct issue, e.g. a local construction influence between elections. This might, for project, or an international future issue such example, involve participating in demon- as climate change. strations, influence through non-profit organisations and liberal adult education, The democratic discourse provides oxygen participation in the media or through direct for the democratic form of government and contact with decision makers. It might also our representative democracy by bringing involve participating in referendums, opinions, perspectives and knowledge to citizens' dialogue or submitting citizens' the attention of elected representatives in initiatives. Civil society plays a key role in political assemblies and others in power. our democracy since democracy is depen- This flow of opinions and knowledge dent on people's participation in society and vitalises and enriches the decision-making. engagement in societal issues. There is thus It is therefore of great importance that the a need for a policy that promotes democracy democratic discourse is open to a diversity and a policy that promotes the freedom and of voices and that different perceptions are independence of civil society. stated. The living democratic discourse is

6 Defending free speech closely linked to the conditions for freedom decreased by 10 percentage points between of expression. The starting point is that 2014 and 2016 according to the University everyone has the freedom to express what of Gävle's Diversity Index (2016). they wish, but no one has the right to go unchallenged. Criticism and questioning The polarisation can also be seen as an form part of the discourse. It must be expression of fewer areas of contact between allowed to object and think differently, people. There are signs of increased segregation and it must be possible to pit opinions in cities and growing disparities between against each other. However, everyone different parts of Sweden. Segregation on for should contribute to a respectful tone of example the housing market (Andersson & discussion, free from the threats and Kährik, 2016) and in the education system hatred that cause people to fall silent. (IFAU, 2015) creates differentiation and Respect for one's ideological opponents reduces the areas of contact that enable is central in a democracy. people with different backgrounds and experiences to meet and interact with each If people's opportunities to participate in other. The unequal opportunities to find the democratic discourse are limited on employment, a good school for one's account of phenomena such as threats and children, well-functioning healthcare and hatred, it will influence the formation of good housing are factors contributing to opinion in society. Opinions, perspectives the polarisation. and knowledge risk becoming marginalised and omitted from decision-making processes. The polarisation is reinforced by organisa- Political processes and decisions become tions and movements, both in and outside less firmly anchored, decrease in legitimacy Europe, whose strategy is to create greater and maintain lower quality. A limited tensions between people by pitting “us democratic discourse ultimately leads to a against them” and to abuse the opportunities less effective democracy. accompanying digital development. Populist, nationalist and reactionary movements are 1.1 Polarisation creates tensions gaining influence by challenging democracy In an international comparison, Sweden is and undermining the open pluralistic an open country with equal opportunities. democracy based on the rule of law, An increased acceptance of differences and free media as well as on human rights diversity has been the long term development and freedoms. within the population. The vast majority are positive and respectful towards the choices 1.2 A changing media landscape and perceptions of other people. At the same Our new media landscape allows more time Sweden, like many other countries people to express themselves and make today, is showing worrying signs of polarisation. their voice heard. From having previously We are witnessing greater tensions between been a medium for spreading and collecting groups in society, and people appear to be information, the internet and social media drifting apart from each other with regard to are today interactive meeting places that fundamental values. The proportion of the have fundamentally changed the way people population who are positive to diversity has communicate with each other. Digital

Defending free speech 7 8 Defending free speech development has thus created conditions 1.3 Sexism and racism in the public sphere for a more open and inclusive democratic The threats and hatred found in the public discourse that can help to increase participation. sphere and digital environments are reinforced More people than ever have the opportunity by gender-based threats and hatred, sexism, to express, spread and access different racism and similar forms of hostility. Threats opinions, ideas and information, but also and hatred suffered by women, girls and comment on, debate and form public LGBTI people are often linked to gender, opinion. The creation of a text or film is power and sexuality. For example, offences possible with just a few clicks. This is a that violate integrity directed against girls and positive development but it also has women are to a higher degree of a sexualized its challenges. nature than those directed against boys and men. Violations such as unlawful threat and A prerequisite for a functioning democracy molestation often have racist or homophobic is the existence of independent media that purposes. Similarly, people who debate can freely convey societal information, subjects such as feminism, gender, gender comprehensive news and investigative equality and racism are often exposed to journalism. In the report “A cross-cutting threats and hatred. This exposure means that media policy” (SOU 2016:80), the inquiry certain voices risk being silenced and public describes a media industry under hard discourse risks being limited. pressure. Today, national and local news media are finding it difficult to finance their Digital development can be abused by those activities. In particular, the economic with interests other than an open and challenges of the daily press have led to cuts. democratic society. Some forums on the More and more areas in Sweden are without internet are dominated by sexist and racist qualitative journalistic coverage. The attitudes or violent extremist messages. These advertisement driven news media are facing messages, which have previously been aired in new challenges as the major global companies closed contexts, are now disseminated via and social media platforms gain ever greater comments fields and social media and thus influence. The global companies influence have a greater impact today than before. the dissemination of news, journalism and societal information through algorithms that 1.4 The work to safeguard the steer the content of social media platforms. democratic discourse The Government is implementing major People's media habits have moved towards a investments in our common welfare in order more fragmented use of news and media. to tackle the problems of polarisation, Social media has facilitated news streams segregation and unequal opportunities for that are customised to individual preferences work, education, healthcare and housing. based on what the user has previously read Extensive investments have been made. For or viewed. When many people receive example, as of 2017, the municipal level customised streams and personalised news, receives SEK 10 billion annually to create it might result in increasingly one-sided opportunities to, inter alia, employ more information that confirms their own people and strengthen healthcare, education opinions. These “filter bubbles” can serve to and social care. Investments in education are increase polarisation in society. This trend being made, including “Collaboration for the risks counteracting the enhanced opportunities best school” and a new knowledge boost for the free formation of opinion provided programme for lifelong learning and higher by digital development. employment. Other examples of investments are increased resources for the police, crime

Defending free speech 9 prevention, renovation of the public housing the internet and in social media, the programmes known as the Million Programme, Government is implementing a series of initiatives to reduce long-term unemploy- specific measures. Below follows a brief ment, initiatives to strengthen the Social presentation of four of the most important Child and Youth Care, the appointment of a measures: preventive work against racism, Commission for Equity in Health, a national sexism and violent extremism, improved coordinator and an agreement between the source criticism, support for civil society Government and the Swedish Association and dialogue with internet companies of Local Authorities and Regions for and providers. mental health, as well as “Äga rum”, which is an investment in art and culture in 1.4.1 Counteracting sexism, racism and socioeconomically vulnerable areas. violent extremism In the public sphere, it is important to The Government is also implementing a expose, challenge and counteract threats and series of measures whose overall aim is to hatred that are expressed through gender- safeguard the democratic discourse and the based threats and hatred, sexism, racism and open pluralistic society. The basis for not similar forms of hostility towards people allowing threats and hatred to grow and take who are perceived to violate the norms root lies in the wide-ranging efforts to of society. strengthen democracy, the preventive work related to human rights and gender equality, In order to counteract hatred and and in initiatives against sexism, racism, threats that are sexist and gender-based, discrimination, violent extremism and the Government is working to promote a terrorism. Today, several of these areas are gender equality perspective in all preventive covered by action plans, strategies and efforts, not least with regard to destructive communications such as: “The Government's masculinity norms in physical and digital strategy for national efforts with human environments. In its communication rights”, “Power, goals and agency – a “Power, goals and agency – a feminist policy feminist policy for a gender-equal future”, for a gender-equal future” (2016), the “A comprehensive approach to combat Government presents, inter alia, a national racism and hate crime – National plan to strategy to prevent and combat men’s combat racism, similar forms of hostility and violence against women. hate crime”, “Actions to Make Society More Resilient to Violent Extremism” and The Government is also working against “Prevent, preempt and protect – the Swedish racism and hate crime. In the Government's counter-terrorism strategy”. Central policy national plan, “A comprehensive approach to areas are media policy, which promotes combat racism and hate crime – National independent media, and cultural policy, plan to combat racism, similar forms of which works for culture to be a dynamic, hostility and hate crimes” (2016), the challenging and independent force. The Government identifies five strategic areas for issues are global, and the Government works improving the protection against racism, accordingly at the international level within, similar forms of hostility and hate crime. e.g. the EU, the Council of Europe, UNESCO One of these strategic areas is strengthening and other relevant UN bodies in order to preventive measures online. The Governme- strengthen human rights and promote nt has, inter alia, commissioned the Swedish freedom of expression, among other things. Media Council to map the protection of children and young people on the internet In order to counteract exposure to threats with regard to racism, similar forms of and hatred in the public sphere, especially on hostility, hate crime and extremism. The

10 Defending free speech A limited democratic discourse ultimately leads to a less effective democracy.

Defending free speech 11 Swedish Media Council has also been important prerequisite for a functioning commissioned to run the campaign “No democratic discourse that allows people Movement” up until the end of to participate on equal terms. Digital 2020. The aim of this campaign is to raise transformation, which means that everyone awareness among children and young people can produce content and share the online about racism and similar forms of hostility content of others, places great demands on on the internet. Similar forms of hostility media and information literacy. Media and can find expression through sexism, homop- information literacy (MIL) involves the hobia, biphobia, transphobia and ableism. In knowledge and skills that individuals need the autumn of 2017, the Government will to critically examine, evaluate and produce convene a dialogue with relevant actors to information digitally. Without the ability to discuss how to prevent and counteract evaluate sources of information, it can be racism and similar forms of hostility and difficult to separate facts and independent hate crime on social media, among other pla- reporting from false news and disinformation. ces. The Living History Forum has produ- ced the course “Counteracting racism and School initiatives for source criticism and xenophobia in preschool and school” and is digital literacy are crucial. For this reason, also working to develop a digital teaching the Government decided earlier this year to resource for source criticism and the use of strengthen digital literacy in curricula and in history for teachers. learning outcomes and individual course and subject syllabi. Commissioned by the The Government has reported on important Government, the National Agency for parts of the work currently in progress Education also offers support for teachers, to safeguard democracy against violent school librarians and other school staff to extremism in its communication “Actions work with critical and safe use of the to make society more resilient to violent internet. The Swedish Media Council is extremism” (2015). The most important commissioned to empower children and preventive initiative in progress is the young people as conscious media users and Government's commission to the National to protect them from harmful media Coordinator to safeguard democracy against influences. The Government has strengthened violent extremism (ToR 2014:103 with the Council with increased funding. Among supplementary terms of reference). In other things, the Swedish Media Council has addition, several new commissions have produced and developed the digital educational been deployed to further strengthen the resource “MIL for me” and educational preventive work. One example is the materials about propaganda and the power Swedish Defence Research Agency’s (FOI) of images, which is intended for children commission to map and analyse violent and young people. extremist propaganda on the internet and in social media. Two reports have been Well-developed reading skills are fundamental produced so far: “Hate messages and violent to people's ability to fully participate in the extremism in digital environments” (2017) democratic discourse. The Government has and “The Digital Caliphate. A study of therefore implemented several reading propaganda from the Islamic state” (2017). promotion initiatives and appointed a Reading Delegation. In the public sphere, 1.4.2 Improved source criticism libraries are an important meeting place To an ever-increasing extent, the knowledge for people. Libraries are to promote the society requires our ability to interpret development of our democratic society by information. A critical and conscious contributing to the conveying of knowledge attitude to media and information is an and the free formation of opinion. Public

12 Defending free speech libraries are to work particularly to increase enabling communication is regulated by the knowledge of how information technology Act (1998:112) on Responsibility for Electronic can be used for knowledge acquisition, Bulletin Boards (the BBS Act). There is an learning and participation by children, obligation to provide information on who young people and adults. operates a service, an obligation to supervise the communication taking place by means of 1.4.3 Support for civil society the service and an obligation to remove or Civil society organisations are central to our prevent the dissemination of messages that democratic society and to the work against obviously entail certain listed offences. threats, hatred and violations. Both established and new initiatives are part of civil society Dialogue is in progress with representatives that aim to counteract threats and hatred. of global internet companies at an international Examples of established organisations in the level regarding opportunities for self- field are the Internet Foundation in Sweden regulation, i.e. a system for voluntary control (IIS), which works for a positive development and moderation. Last year, the European of the internet in Sweden, and the Swedish Commission presented an agreement with Institute of Law and Internet, which works Google, Facebook, Microsoft and Twitter against internet-related violations. Establis- whereby these companies undertake to hed initiatives aimed at children and youth expand their operations to remove illegal include “Surfa Lugnt” (Safe Surfing), which hate speech from their platforms. The first raises the knowledge of schools and adults year's operations were evaluated in May 2017. regarding the everyday internet activities of The evaluation showed clear progress, children and young people, and Friends, including the way in which the companies which works against bullying in schools, handle the removal of hate speech. At preschools and sports associations. Newly present, European legislation is also formed initiatives that have had an impact in being negotiated regarding an obligation social media include #jagärhär, which uses to ensure that video sharing platforms positive messages to counteract hatred, have rules to protect the public against threats and violations on the internet. incitement to violence and hatred in the context of the AVMS Directive (Audiovisual The Government considers it urgent that Media Services). 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

Defending free speech 13 2. A harsher climate for discussion and debate and its consequences

Threats and hatred against those participating elected representatives, journalists and artists in the democratic discourse are not a new support the infrastructure of the democratic phenomenon. However, in the new media discourse. Therefore, in addition to affecting landscape, digital development has made it individuals, threats and hatred also constitute easier both to express and disseminate an attack on their roles as elected representative, threats and hatred. Greater visibility and journalist or artist, and on their function as accessibility increases exposure. Today, many an important voice in the democratic people can have large quantities of hatred discourse. directed against them, ever present via their phone. Online abuse covers everything from Politically engaged people enter elected derogatory comments and harassment to office in order to contribute to the upholding offences such as molestation and unlawful and renewing of democracy. Their elected threat. These violations tend to be more office means that, through the political gross and more extensive than offline parties, they represent citizens in the violations. Threats and hatred on the internet political assemblies. For this reason, it must and in social media can arise suddenly, to a be possible for elected representatives to be great extent and risk remaining with us for a open and accessible and to participate in the long time. public debate, not least for their voters and for the citizens they represent. All people are equally important in the democratic discourse. Threats and hatred are Journalists report and investigate, and this suffered by those who get involved and makes accountability possible and protects debate various societal issues. For many, society against the abuse of power. Journalists threats and hatred are something they have need to be able to freely report on all issues to relate to in their everyday lives. Some need and to scrutinise public institutions or to take extensive security measures. The those who exercise power. This helps people hatred can have serious consequences for the to be well-informed and to participate and lives of individual people, but can also make demand accountability in society’s us passive in word and deed. Self-censorship, democratic processes. adaptation and tendencies towards a norma- lisation of threats and hatred are something Artists examine, test, question and challenge that a democratic society must view seriously. through their art. In doing so, they contribute to the upholding of a democratic, vital and In this action plan, the Government particularly open society. Sweden's professionally active highlights the exposure of politically elected artists encompass both authors and perfor- representatives, journalists and artists to mers, among them writers and translators, threats and hatred. as well as artists in theatre, dance, film, music, image and form. If culture is to be a 2.1 Safeguarding key actors in the dynamic, challenging and independent force democratic discourse based on freedom of expression, it is It is serious when actors who have key necessary to secure artistic freedom. functions in the democratic discourse are exposed to threats and hatred. In their roles,

14 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.

Defending free speech 15 Also bearing witness to various degrees of the first instance, elected representatives felt threats, hate and violations are individual the perpetrator to be a displeased citizen or a opinion makers and representatives of civil querulant, and a majority of the perpetrators society organisations, such as interest groups were perceived to be men. It is also not or trade unions, which in various ways unusual for the perpetrator to belong to the practise their freedom of expression by same professional group as them. Among commenting on society and contemporary elected representatives, 15 percent of the issues. They give voice to the needs, values incidents are attributed to another elected and interests of various groups, bringing representative. pressure to bear through their criticism of the public exercise of power. Of all elected representatives, one in five has been influenced in their commission by For a living democratic discourse, these exposure or concern about exposure to actors must be particularly safeguarded. threats, violence or harassment. Of the elected representatives who have suffered 2.1.1 Elected representatives threats and hatred, the proportion of those The Swedish National Council for Crime influenced is twice as high, almost two in five. Prevention conducts “the Politician’s Safety This influence on elected representatives has Survey” (PTU), which covers members of the a variety of results, including that they have Riksdag and local government assemblies. avoided commenting on an issue, have PTU 2015 (2015:23) shows that almost three hesitated ahead of a measure, have considered out of ten elected representatives were leaving or have left their commission, or have exposed to harassment, threats or violence adopted a decision different to what they had during the election year 2014. Threats and originally intended. The most common harassment are the most common, primarily consequence of exposure or concern about in the form of threats and attacks via social exposure is self-censorship. media. Three groups of elected representatives run a greater risk of exposure to threats, The report “Threats and violence against violence or harassment: young elected elected representatives” (2014), by the representatives, those who are more active Swedish Association of Local Authorities and and elected representatives in metropolitan Regions (SALAR), shows that self-censorship municipalities. Elected representatives who is a serious problem and that fear causes chair local government executive committees, elected representatives to change their members of the Riksdag and full-time behaviour in everyday life. According to politicians are also particularly exposed. SALAR, the elected representatives speak of Women holding the post of chair, who are a normalisation of threats and hatred. known to the public or who are active or have a presence on the internet or in social media, Among elected representatives, the inclination are more exposed than men in the same to report exposure is low. According to PTU positions. For example, more than seven out 2015, only one in five incidents was reported of ten female local government chairs were to the police. The foremost reasons for this exposed to threats, violence or harassment are that elected representatives do not believe in 2014. that a report will have any result or that the incident has been perceived as a part of Among these exposed elected representatives, the commission. almost one third perceived the perpetrator to come from a political extremist group. The 2.1.2 Journalists difference between the proportion of right- The knowledge that currently exists about wing and left-wing extremists was small. In the exposure of journalists in Sweden comes

16 Defending free speech from several different surveys. On two who are men. The report by the Swedish occasions (2013 and 2016), the University of Media Publishers’ Association and Klara K Gothenburg has used its Journalist Panel to “Threats against female opinion makers” investigate the exposure of journalists to (2017), which is based on interviews with threats and harassment. The investigations women serving as opinion makers, colum- show that almost every third journalist has nists or analysts, shows that the majority, been exposed to threats over the past year. For over 70 per cent of the women who work many journalists, insulting and derogatory with opinion journalism, has been exposed comments are also a part of their everyday life. to threats or harassment over the past 12 months. Journalists who are visible, have a high profile and have prominent roles are According to the publishers’ association particularly exposed. This applies, for Utgivarna’s report “Threats and hatred – example, to journalists working at the how the media is influenced” (2016:01), evening newspapers and at morning news- threats against editorial offices have increa- papers in metropolitan areas, editorial writers sed in scope. Almost half of the editorial and columnists, television presenters and offices had been threatened over the past managers with overall responsibility. The year, compared to one in three editorial Journalist Panel shows that subjects invol- offices the year before. Almost three quarters ving, inter alia, feminism, gender, immigra- of the editorial managers feel that the threat tion, integration and racism often lead to scenario for their office had become greater journalists being exposed to harassment. over the past five years. Twelve of the most serious threats were perceived to come from It is far more common for journalists who private individuals and nine from right-wing are women to be exposed to threats of sexual extremist organisations. violence and sexist violations than journalists

Defending free speech 17 According to the latest investigation in which One in four exposed artists states that the the Journalist Panel participated, just over perpetrator was a representative of a political three in ten of the threatened journalists had organisation or a private individual with at some time refrained from covering certain political motives, often in the form of a subjects or certain people/groups due to the right-wing extremist or racist grouping. risk of being threatened. Of the threatened journalists, one in six has considered leaving Among the exposed artists, many feel that the profession. Fewer than one third of the their artistic freedom has been curtailed in threatened journalists has reported the some sense. As a result of exposure or incidents to the police. Other protective concern about exposure, one third has measures that have been taken involve considered either leaving an assignment or various ways to reduce their visibility and not working in a certain field, and 14 per cent vulnerability in the public sphere, e.g. have left or not accepted a particular assign- concealing personal data and obtaining ment. Few artists report incidents to the personal protection, moderating or closing police. One in three reports violence, comments fields, or being more restrictive on vandalism and theft, and one in ten of those social media. affected has reported threats. The reason for this is that they do not believe a police report 2.1.3 Ar tists will have any result, that the incident is In its report “Threatened culture?” (2016:3), perceived to be a petty matter or that those the Swedish Agency for Cultural Policy exposed have themselves handled the incident. Analysis maps exposure to threats, harass- ment, theft, violence or vandalism linked to There are several reports contributing to a the professional practice of authors and broader and deeper understanding of visual and design artists. One in six authors exposure within the arts. The Swedish Arts and visual artists has been exposed to Grants Committee's report “Working threats, harassment, theft, violence or environment of artists” (2017) examines the vandalism over the past year. Almost one in situation of artists within all areas of art: ima- five authors has been exposed to threats or ge and form, dance, film, music, words and harassment, and about half of all threats are theatre. Almost one in ten artists has been received via the internet. What characterizes exposed to sexual harassment, threats or artists as a group is that almost one tenth has physical violence over the past year. Among been exposed to violence, theft or vandalism those exposed, more than one third has of artistic works. This is often a case of property refrained from artistic activities such as offences, e.g. with regard to public art. performances, publication and participation. The report “Hosts or guards?” from the Among artists, those who are known to the Swedish Agency for Cultural Policy Analysis public or aspire to be social critics are (2016:4) states, inter alia, that artists or particularly exposed. This also applies to artistic works about racism, as well as queer artists who are active in digital channels and and feminist works, tend to be the subject of those who have a media presence. The threats and hatred. In its report “Exposed difference in the proportion of affected men museums?” (2017:01), the Swedish Agency for and women is small. Artists with a foreign Cultural Policy Analysis maps the occurrence background are among those particularly of vandalism, violence and threats directed exposed. The perpetrator is usually perceived against museums and museum authorities. It to be a person who is opposed to the artist's shows, inter alia, that the staff at every third work or a generally angry or displeased person. museum has at some time been exposed to violence and threats in 2015.

18 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 reflects 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.

Defending free speech 19 Three out of ten elected representatives have been exposed to harassment, threats or violence. Every third journalist has been threatened. One in six artists suffers threats, harassment, theft, violence or vandalism.

20 Defending free speech 3. The work of the judicial system to safeguard the democratic discourse

Society must take measures to safeguard Sweden. This applies both to the judicial people's opportunities to participate in the authorities and to municipalities, companies democratic discourse. In order to safeguard and organisations. the democratic discourse, it is the Government's belief that it is necessary to strengthen The Government has implemented the prevention, develop law enforcement and following measures: modernise legislation. • The Government has adopted the crime prevention programme “Combating crime The judicial authorities need to contribute together” (Comm. 2016/17:126) with crime to counteracting threats and hatred in the prevention objectives for all policy areas. public sphere. These authorities must handle The objective of the Government's new cases of threats and hatred in a manner that crime prevention programme is to create inspires confidence. The judicial system's conditions for structured and long-term contacts with people exposed to threats and work with crime prevention throughout hatred in their role as, for example, elected society. representative or journalist need to function well. Since exposure has gender-related • The Government has also increased the differences, it is important for the work responsibility of the Swedish National to take into account a gender equality perspective. Council for Crime Prevention for The ability to clear offences concerning threats support and coordination at the national and violations on the internet must also level and has established regional improve. Procedures for handling threats and coordinators at the county administrative hatred against those participating in the boards. democratic discourse need to be developed, and the competence of the judicial system in 3.2 The Swedish Police Authority protects this area needs to be improved. the fundamental rights and freedoms The Swedish Police Authority plays an All measures that are currently being taken important role in the work against offences within the judicial system have a high priority. that threaten the fundamental rights and The entire judicial system should have know- freedoms and the free formation of opinion. ledge of these democracy problems and an In 2015, the National Police Commissioner ability to handle them, not least in connection raised the Authority's level of ambition in with registering police reports. The Govern- order to better protect the fundamental rights ment intends to monitor the work of the and freedoms. Swedish Police Authority and the Swedish Prosecution Authority in the area to ensure that The Swedish Police Authority’s work has this continues and develops and to assess any included clarifying that at a suspicion of crime needs for further measures in the area. with the intent to influence the free formation of opinion, special attention shall be given to 3.1 The Government is strengthening whether it is a question of serious threats or the work of crime prevention harassment that can lead to an elected repre- The Government is creating better conditions sentative, a journalist or other opinion maker for crime prevention work throughout refraining from operating in the public sphere.

Defending free speech 21 The Swedish Police Authority has organisations representing exposed strengthened the work in several areas: groups. In autumn 2015, a consultation • Offences that threaten the fundamental forum was established for this purpose. rights and freedoms and the free formation In this and other forums, the Authority of opinion shall be investigated by the meets with representatives from, e.g. the Swedish Police Authority’s democracy media industry and party organisations and hate crime units where these exist, to exchange experience on a regular basis or handled in a particular order. The and to improve operational collaboration. democracy and hate crime units and UC Stockholm also convenes the other allocated resources are to support Swedish Police Authority’s internal the local police districts to prevent crime, networks for those working with demo- conduct training and build trust. cracy and hate crime. All police regions have contact persons who, in turn, are in • The Swedish Police Authority is currently contact with UC Stockholm. investing in internal training to increase its skills and knowledge regarding • The Government intends to particularly offences concerning fundamental rights monitor the Swedish Police Authority's and freedoms. A web-based training work in the area. In the Swedish Police programme is being developed for Authority's appropriation directions for distribution to all police employees 2018, the Government intends to require who might come in contact with these the Authority to report back on the matters, e.g. those registering reports measures it has taken as a result of and other staff. The purpose of this raising its level of ambition and to present training is to provide support both arguments concerning the effects those in criminal investigations and in the measures are assessed to have had or will confidence-building initiatives. have and how this work will continue to be developed. It is particularly important • The Swedish Police Authority's crime that contact has been established between victim and personal security division local media actors and the Swedish (BOPS) is available in all police regions Police Authority. and is responsible for providing support to exposed victims. BOPS has contact 3.3 The Swedish Police Authority and the with those responsible for security at the Swedish Prosecution Authority improve media houses and for local politicians in the conditions for investigation and legal the respective regions. BOPS can offer proceedings personal protection to those who are In addition to the Swedish Police Authority’s threatened and collaborate with other parts work for the fundamental rights and of the Swedish Police Authority when there freedoms, further work is being done by the is a need for particular measures concer- judicial authorities to improve the conditions ning victim support or personal protection. for investigation and legal proceedings. One target group receiving attention in this • The Swedish Police Authority has a development work is elected representatives. Development Centre (UC) for every In June 2014, Chief Public Prosecutor police region, each having designated Torsten Angervåg submitted to the Govern- national areas of responsibility. UC ment a survey and analysis of how the courts Stockholm’s responsibility includes assess the penal value of offences against offences that threaten fundamental rights elected representatives. The survey indicated and freedoms and thus has a particular the need to develop the work to strengthen responsibility for national contacts with the procedures of the Swedish Police

22 Defending free speech Defending free speech 23 Authority and the Swedish Prosecution Like other cybercrime, threats on the Authority regarding how they receive internet and social media have risen sharply victims and register reports, in order to over the past ten years. Digital development speed up investigation and legal procee- and increased internet use have had a major dings. Such development work could also impact on the work of authorities conducting have effects on investigation and legal criminal investigations. Keeping pace with proceedings regarding offences against this development places entirely new journalists and other opinion makers. demands on competence and capacity regarding cybercrime. The development work of the Swedish Police Authority and the Swedish Prosecution Several measures are being implemented at Authority regarding investigation and legal the Swedish Police Authority and the Swedish proceedings also includes the following Prosecution Authority: initiatives: • On 1 October 2015, a national cybercrime • The Swedish Police Authority is conducting centre was established at the Swedish work to design procedures that are Police Authority. The aim of the cybercrime intended to be used for taking reports centre is to strengthen the ability to concerning incidents where a political combat cybercrime. The cybercrime link or a political motive is suspected. centre is an expert resource whose The person reporting the incident is to responsibility includes increasing the be asked whether the incident might have dissemination of knowledge within the a political link, and the report is access- Swedish Police Authority, which is protected where necessary. The Swedish intended to increase the overall level of Police Authority's crime victim and knowledge at the Authority. personal security division has coordinators in all police regions. These conduct • Work is in progress at the Swedish Police outreach activities to build relationships Authority to produce national guidelines with elected representatives. Among and methods for combating cybercrime. other things, the coordinators inform the elected representatives of the importance • The Swedish Prosecution Authority has of reporting any suspicion that the produced a new legal memorandum on hate incident might have taken place on crime that includes guidance on the practical account of their political engagement. handling of hate crime on the internet.

• Since 2016, the Swedish Prosecution • One of the issues of precedent that the Authority’s development centre in Malm Swedish Prosecution Authority is also has been conducting a development prioritising in 2017 is the penal value of project focusing on offences concerning gross defamation, particularly young threats and violence against elected people's online exposure and the dissemi- representatives. The purpose is to nation of photographs via mobile phones. streamline preliminary investigations and thereby create conditions for greater • Through its appropriation directions for uniformity and legal security in law 2017, the Swedish Prosecution Authority has enforcement and to ensure that the been commissioned to report on the offences are punished adequately. measures that have been taken to strengthen the Authority's ability to intervene against 3.4 Initiatives of the Swedish Police threats and violations on the internet. Authority and the Swedish Prosecution Authority against cybercrime

24 Defending free speech 3.5 The Government is strengthening the Swedish Penal Code entailing a criminal criminal law protection liability on unlawful violation of privacy by The Government has conducted work to spreading images or other information that better adapt the penal regulations to digital are sensitive in terms of privacy. development. This development has led to threats and other violations of personal In a proposal referred to the Council on privacy taking on new forms. In order to Legislation for consideration on 8 June 2017, better counteract threats and violations, in the Government has proposed that the penal both digital and physical environments, it is protection of personal privacy be enhanced necessary to adapt the penal regulations to and modernised. The Government’s propo- the problems that are relevant today. The sal includes the introduction of a new regulations need to encompass new means offence – unlawful violation of privacy – of communicating and phenomena that did which makes it punishable to violate someo- not exist when the legislation was introduced. ne else's private life by spreading certain kinds of images or other information that In May 2014, the Government decided to are sensitive in terms of privacy. The commission an inquiry to conduct a broad Government also proposes that the penal review of the protection provided by provisions for unlawful threat, molestation, criminal law individuals personal privacy, gross defamation and insulting behaviour be particularly with regard to threats and other clarified and modernised. The provision on violations (ToR 2014:74). In February 2016, unlawful threat is also expanded to make it the Government received proposals on how punishable to threaten someone with several the legislation can be amended and moderni- types of criminal acts, e.g. threats to spread sed in the report “Privacy and penal protec- images of someone´s naked body. The provi- tion” (SOU 2016:7). The legislative propo- sion on molestation is also expanded. It is sals include offences, defamation and proposed that criminal liability under the BBS insulting behavior, and the crimes against Act is expanded to also encompass messages liberty and peace, i.e. unlawful threat and that obviously contain unlawful threats or molestation, as well as the responsibility for unlawful violation of privacy. Most of the those who provide electronic bulletin amendments are proposed to enter into force boards. The inquiry also proposes the on 1 January 2018. introduction of a new provision in the

Defending free speech 25 4. The Government is strengthening the preventive work against exposure to threats and hatred Safeguarding the democratic discourse is a • Stronger support for artists shared responsibility. All those participating • International cooperation for the in the public debate need to take responsibi- protection of journalists and artists lity for counteracting exposure to threats and hatred. This applies to the Government, The measures being implemented by the the judicial system and other government Government are based on the knowledge agencies, employers, civil society organisa- currently available about the exposure of tions and individuals. actors in the democratic discourse (Section 2.1). The Government Offices has also had Extensive work is being done to protect the contacts with relevant actors ahead of democratic society, both through preventive producing this action plan. In 2016, the work to strengthen democracy, (Section 1.4) Government conducted a number of and also through measures undertaken by round-table discussions – “United against the judicial authorities (Section 3). The threats and hatred” – to collect experiences Government is now commencing a more of exposure to threats and hatred and to systematic effort to prevent exposure of key establish what initiatives that are needed. actors in the democratic discourse – elected This dialogue will continue. representatives, journalists and artists – to threats and hatred. The ambition is to reduce 4.1 Deeper knowledge of threats exposure using targeted measures with and hatred respect to elected representatives, journalists Knowledge of how exposure to threats and and artists, and through basic support relating hatred manifests itself, of which participants to all those participating in the democratic in the democratic discourse that are particularly discourse. It is important that particular exposed and of the consequences exposure has, is exposure and a gender equality perspective be crucial for the work to be efficient. The taken into account in order to improve the exposure of key actors needs to be monitored understanding of differences in exposure and over time, and knowledge in the area needs to be better able to counteract exposure. to be developed.

The objective of the Government's work in The reports published so far provide a solid base the area is to help increase knowledge about for this. Commissioned by the Government, the threats and hatred against those participating Swedish National Council for Crime Prevention in the democratic discourse, to improve (Brå) has mapped the exposure of elected access to support for actors who are, or risk, representatives to threats, violence and harass- being exposed, and to increase awareness of ment in the Politician’s Safety Survey (PTU) on the issue and the preventive work. three occasions (2012:14, 2014:9 and 2015:23). Using its Journalist Panel, the University of The Government's measures are focused on Gothenburg has conducted two investigations six areas: into threats and violations against journalists • Deeper knowledge of threats and hatred (2013 and 2016). The Swedish Agency for • Basic support for all those exposed Cultural Policy Analysis (2016:3, 2016:4 and • Stronger support for elected representatives 2017:1) and the Swedish Arts Grants • Stronger support for journalists Committee (2017) have published several and editorial offices reports on threats and hatred against artists.

26 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.

Defending free speech 27 The Government is implementing the initiatives with respect to specific groups following measures: (Sections 4.3–4.5). • The Swedish National Council for Crime Prevention has been commissioned The Government is implementing the by the Government to conduct the following measures: Politician’s Safety Survey (PTU) for the • The Swedish Crime Victim Compensation year between election years, 2016. The and Support Authority is being commis- survey will also be conducted for the sioned by the Government to produce a election year 2018. training and information resource concerning support for those participating • The University of Gothenburg has been in the democratic discourse who are commissioned by the Government to exposed to threats and hatred. The further develop its survey of threats and resource is intended to be used by hatred against journalists. government agencies and organisations that need better tools to support those • As of 2017, the SOM Institute at the exposed, but also by private individuals University of Gothenburg analyses the who are exposed to threats and hatred in scope of the democratic discourse and the public debate. the extent to which those participating in the discourse have been exposed to • The Government is granting Victim threats and hatred. Support Sweden funds to develop and strengthen the organisation’s support for • The Swedish National Council for Crime individuals who are exposed to threats Prevention's Swedish Crime Survey (SCS), and hatred in connection with their which is conducted annually, has undergone participation in the public discourse. development in 2016–2017 to better Victim Support Sweden is to develop the capture phenomena that can be described support it provides to people who are as online abuse. exposed to threats and hatred. The work is to be done through the national helpline 4.2 Basic support for all those exposed and through local victim support centres. All those who use their freedom of expression are to have access to support if they are • In 2018, the Government will be enhancing exposed to threats and hatred. Today, there the opportunities to seek support for are great variations in terms of the support non-governmental initiatives that help to that elected representatives, journalists, prevent threats and hatred against the artists, individual opinion makers, civil democratic discourse, e.g. to develop guides society organisations and others participating and guidelines, action programmes, in the democratic discourse have access to. training and experience exchange. The support is partly dependent on whether individuals participate in the democratic 4.3 Stronger support for elected discourse as part of their employment and representatives on the employment conditions they have. The work being done to prevent and handle It is therefore important to develop basic threats and hatred against elected representatives initiatives that increase awareness of the needs to be strengthened. Responsibility for available support, that are accessible to all the work environment of elected representatives and that help individuals to handle their at the local level is currently divided between exposure. In addition to this basic support the municipality or county council and the for all those participating in the democratic political parties. A large proportion of discourse, there is also a need for targeted elected representatives do not receive the

28 Defending free speech support they need, and many are unaware Support for journalists and editorial offices of whether there are action plans or a to prevent and handle threats and hatred security officer to turn to. Many local needs to be improved. Journalists are a governments therefore need to develop heterogeneous group as regards working and their work to prevent and handle threats and employment conditions. Many are hatred against elected representatives. In this self-employed and take on freelance work, development work, it is important that temporary assignments or fixed-term local governments in their turn have access employment and thus have no permanent to support. support from an employer. Combined with the fact that media actors that are not The Government is implementing the well-established might have limited opportu- following measures: nities for working with security and safety • The Government has allocated funding issues, this means that the support currently to the Swedish Association of Local offered to journalists varies in individual Authorities and Regions (SALAR) in cases. To reduce the exposure of journalists order to support and develop the and editorial offices to threats, it is impor- systematic work of municipalities and tant that initiatives to increase competence county councils to combat threats and and capacity are available and that they reach hatred against elected representatives in target groups in need of support, e.g. 2017. Among other things, SALAR is to freelancers, small editorial offices and constitute a more operational support for smaller production companies. the local level, adapted with reference to local conditions. The Government is implementing the following measures: • In 2017, the Government is inviting the • As part of its continuing professional Riksdag parties’ security officers to a training for journalists, Linnæus University dialogue on threats and hatred against has been commissioned to develop elected representatives. The meeting will initiatives to increase competence and be a starting point for the 2018 elections capacity with respect to the prevention and a follow-up to the meeting with the and handling of threats and hatred. parties in 2016. These initiatives are to reach journalists and editorial offices, not least freelancers, • The Government will investigate the small offices and smaller production possibility of strengthening the criminal companies that have limited opportunities law protection for elected representatives. to work with security and safety issues. This investigation is to supplement the The commission includes building up a decision-making documentation in the knowledge centre and a service offering inquiry “The pursuit of power” (SOU advice as well as support adapted to the 2006:46). The inquiry contains proposals to target group. strengthen the criminal law protection for elected representatives. The parliamentary • Together with the Swedish Police Authority, committee's assessment at that time was the Government will invite relevant actors that offences against elected representatives to a dialogue on how to develop the occur to such an extent that this may be Authority's work in relation to journalists considered to constitute a threat to the and editorial offices. The reason for this is representative democratic system. that many actors in the media industry have stated that their contacts with the police 4.4 Stronger support for journalists need to be improved. and editorial offices

Defending free speech 29 4.5 Stronger support for artists in the event of threats and hatred. Support for artists who are exposed to To develop this work, the Swedish Arts threats and hatred needs to be developed. As Grants Committee is receiving extra most artists and authors are self-employed, funding for 2017. they often lack the support and protection that covers employees. Support for exposed • In November 2016, the Government artists can be impeded by an unclear division appointed an inquiry (ToR 2016:93) to of responsibilities between artist and client. review the conditions for artists. The Factors such as human and financial resources, inquiry chair is to conduct a broad review as well as previous experience and knowledge, of the central government initiatives and the are significant to the support that clients and conditions for professionally active artists. organisers offer. There is a need for easily accessible support for exposed artists and 4.6 International cooperation for the authors, but also initiatives for clients protection of journalists and artists and organisers. Sweden aspires to be a strong voice in the world, promoting freedom of opinion, The Government is therefore implementing freedom of expression and media freedom, the following measures: and contributes to secure the safety of • Since 2017, the Swedish Arts Grants journalists and artists. Examples of important Committee has had a special commission actors and arenas are the UN, UNESCO, to develop forms for providing support the European Union and the Council of to exposed artists. As part of this Europe. Sweden's development cooperation commission, the Committee is working contributes to, inter alia, increasing the to produce a web-based guide for safety of journalists and to prevent journa- providing support to artists regarding lists and artists from being exposed to threats, hatred, violence, harassment and arbitrary detention. The Council of Europe's discrimination. The guide offers material work in this area focuses on promoting including information on work environment freedom of expression in accordance with issues and what an exposed artist can do Article 10 of the European Convention. In

30 Defending free speech 2016, the Council of Europe adopted dom, and of the safety of journalists and recommendations for the protection of artists. Sweden will particularly highlight journalists. Sweden plays its primary role issues of threats against the safety of within the Council of Europe through the female journalists, including exposure to Steering Committee on Media and Information threats and hatred. Society (CDMSI). Through its participation in CDMSI, Sweden is for example able to • Through Sida, Sweden has contributed influence other countries in issues relevant funding to UNESCO which includes to the safety of journalists. UNESCO is the major support for UNESCO's work with UN organisation mandated to pursue issues press freedom and freedom of expression. of press freedom and freedom of expression, This covers gender equality issues and media development and the safety of support for the right of journalists and journalists. Within UNESCO, Sweden is one artists to freedom of expression. of the countries most active in raising the issue of freedom of expression and the safety • The Government will continue to of journalists. Sweden supports UNESCO's promote the work to create cities of work in terms of policy, advocacy and refuge for persecuted journalists and finances. Sweden will continue to artists. The Swedish system for cities contribute actively to the implementation of of refuge has been expanded via the the “UN Plan of Action on the Safety of Swedish Arts Council. Sweden now has Journalists and the Issue of Impunity” more cities of refuge than anywhere adopted by the UN in 2012. else in the world, to which artists and journalists are invited by a Swedish The Government is implementing the municipality orcounty council on account following measures as part of its of persecution in their home country. international cooperation: • In multilateral forums such as UNESCO, Sweden will continue to raise issues of freedom of expression and press free-

Defending free speech 31 Ministry of Culture SE-103 33 Stockholm Sweden Switchboard: +46 8 405 10 00