A comprehensive approach to combat and hate National plan to combat racism, similar forms of hostility and Production: Government Offices of Print: Elanders 2017 Photos: p. 1 Anders Wiklund/TT p. 5 Kristian Pohl/Government Offices of Sweden p. 8 Rania Rönntoft/Scandinav p. 13, 19, 29, 32, 41 och 46 Martina Huber/Government Offices of Sweden p. 24 Ninni Andersson/Government Offices of Sweden Read, download and share this National plan at government.se. A comprehensive approach to combat racism and hate crime

National plan to combat racism, similar forms of hostility and hate crime Foreword

Sweden is to be a country free of Throughout history Sweden has racism and hate crime. With this been a country in which a multi- National plan, the Government is tude of viewpoints, opinions and taking a comprehensive approach to perspectives have been expressed the important work on these issues and coexisted. This means that carried out by a number of agencies, Swedishness is the sum of a wealth regional and local actors and civil of different elements. Sami, Af- society organisations. The plan is a ro-Swedish, Roma, Muslim and tool for preventing and combating Jewish, along with many other com- racism and polarisation in society ponents, are all part of what Swed- and paving the way for a cohesive ishness is. At the same time, racism Sweden characterised by solidarity. and attitudes derived from racial bio­logy have existed in Sweden for Racism creates a breeding ground a long time, and during particular for hate crime. It affects all of us. eras have also been State-sanctioned Combating racism and hate crime policy. demands a holistic approach. A Na- tional plan to combat racism, simi- Trends in today’s Sweden are com- lar forms of hostility and hate crime plex. On the one hand, surveys will give Sweden this opportunity. show that support for openness and This plan will make actors better inclusion is increasing over time, placed to work together, enabling but on the other hand, and at the initiatives to be followed up and same time, many people are wit- work to be developed as a whole. nessing a more hate-filled social cli- The National plan sets out five stra- mate in which racism is showing its tegic areas on which the Govern- face ever more clearly. Commitment ment will particularly focus in its to the equal value of all people and upcoming work. equal access to rights and oppor-

4 A comprehensive approach to combat racism and hate crime tunities has been high in Sweden every day, in every part of our so- and remains so today. As increas- ciety. ing numbers of people testify to an increasingly harsh social climate, Because Sweden is all of us we need to seize on the power and – together. opportunity for change inherent in this commitment. Young people are a particular target group in this re- Alice Bah Kuhnke spect. Minister for Culture and Democracy

The fight for inclusion and against Anders Ygeman racism is not a single project, nor is Minister for Home Affairs it a one-off initiative. It is a contin- uous, broad effort. We all have a re- Morgan Johansson sponsibility to engage in this fight Minister for Justice and Migration

Ministry of Culture and Ministry of Justice 5

Contents

1. Introduction...... 9 Objective of the plan and follow-up ...... 9 Structure of the plan ...... 9 Terms ...... 10 Links between the National plan to combat racism, similar forms of hostility and hate crime and other policy areas ...... 12 International undertakings and the work of international bodies ...... 21

2. Racism, similar forms of hostility and hate crime in Sweden today ...... 25 Attitude and experience surveys ...... 25 Hate crime statistics ...... 28 Status reports and proposals from civil society actors ..... 32 Status reports and proposals from Government bodies ... 37 Status reports and proposals from international monitoring bodies ...... 38 About the different forms of racism and similar forms of hostility in particular ...... 40

3. Measures: Five strategic areas ...... 49 More knowledge, education and research ...... 50 Improved coordination and monitoring ...... 55 Civil society: greater support and more in-depth dialogue ...... 58 Strengthening preventive measures online ...... 60 A more active legal system ...... 62

Ministry of Culture and Ministry of Justice 7

1. Introduction

Objective of the plan and The progress of work towards the follow-up objective must be followed up and The overarching objective of this analysed on a regular basis. Follow- plan is strategic, effective and coher- up is to be supplemented by recurr­ ent work to combat racism, similar ing comparable descriptions of the forms of hostility and hate crime in situation in this area, providing an Sweden. indication of whether the initiatives are sufficient and adequate. Con- The plan is to form a basis and a stantly monitoring progress and focus for work to combat racism and identifying shortcomings as well as hate crime in the particularly im- improvements will help to develop portant strategic areas identified by the plan further on. the Government: More knowledge, education and research; Improved Structure of the plan coordination and monitoring; Civil The plan comprises three parts: 1. society: greater support and more Introduction, 2. Racism, similar in-depth dia­logue; Strengthening forms of hostility and hate crime in preventive measures online; and A today’s Sweden, and 3. Measures: more active legal system. The plan Five strategic areas. sets out a structure for coordina- tion and follow-up which lays the This first part presents the content groundwork for long-term strate- of the plan in an overarching man- gic work. ner, including the objective of the plan and the links between the plan The measures in the plan are to be and other policy areas and topics. linked to objectives laid down by the (Swedish Parliament) The second part presents an over- for the different areas addressed in view of the accounts and comments the plan. in various reports, mainly by agen-

Ministry of Culture and Ministry of Justice 9 cies and international monitoring bodies, and of testimonies received by the Government in dialogues The plan is to with representatives of organisations representing groups exposed to rac- form a foundation ism and hate crime. and a focus for The third part sets out the strategic work to combat areas that have been identified as being crucial to attaining the plan’s racism and hate objective. Under each such strategic area, the main problems seen by the crime within the Government are set out, along with the needs for initiatives identified particularly by the Government and the initia- important tives that are currently in progress and those that are planned. strategic areas

Terms identified by The plan consistently uses the terms the Government. racism, similar forms of hostility, , anti-Semitism, anti- Gypsyism, , racism against Sami people, , , and hate crime. Definitions of these terms are subject to constant development and discussion. The sense in which the Government is using these terms in this plan is set out below.

10 A comprehensive approach to combat racism and hate crime Racism tural racism” in the sense that rac- When the Government uses the ist actions are not always based on term “racism” in this plan, this an individual’s political convictions refers to opinions that people are but can also be unconscious. This essentially different from each other means that racism, in various forms, due to assumptions on race, nation- exists as part of the structures of al, cultural or ethnic origin, reli- society. This has the effect that peo- gion, skin colour or other similar ple’s access to rights and opportu- circumstance, and that they there- nities, power and influence differs fore can or should be treated in dif- due to others’ conscious or uncon- ferent ways. Viewing cultures as un- scious assumptions about the group changeable and incompatible and to which an individual belongs. A individuals’ cultural identity as un- structural perspective also means changeable and inherited, as well as that individual cases of discrimina- considering that different cultures tion or hate crime must not be seen are unable to coexist have come to as isolated incidents but as part of be expressions of racism today. This a broader context. In the same way can be expressed by individuals as that racism is structural, differenc- well as groups being seen as alien or es based on sex, and sex- undesirable in a society. Racism can uality are structural too. These dif- lead to actions, such as hate crime ferences can interact and reinforce or . In the past, racist each other. Like work for gender views have drawn more on biology equality, LGBTQ rights or access­ than is currently the case. However, ibility, work to combat racism de- right-wing extremists, known as the mands initiatives that increase the white power movement, still base opportunities of vulnerable groups their opinions on racial biology. for .

The existence of structural racism There are different forms of rac- is an important perspective. The ism, e.g. Afrophobia, anti-Semitism, Government uses the term “struc- anti-Gypsyism, Islamophobia and

Ministry of Culture and Ministry of Justice 11 racism against the Sami people. The or ethnic group as well as unlawful Government uses these terms in the discrimination and other offences sense of ideologies, opinions or val- where a motive for the crime was to ues that express hostility towards aggrieve a person, ethnic group or Afro-, , Roma, some other similar group of people or Sami. by reason of race, colour, national or ethnic origin, religious belief, Similar forms of hostility sexual orientation or other simi- The Government uses the term lar circumstance (see Chapter 16, “similar forms of hostility” in the Sections 8 and 9, and Chapter 29, sense of ideologies, opinions or val- Section 2, paragraph 7 of the Penal ues that express hostility towards Code). people who are considered to breach the norms of society in terms of Links between the National their sexual orientation, gender plan to combat racism, similar identity or gender expression, for forms of hostility and hate example. This can be expressed as crime and other policy areas homophobia, biphobia and trans- The Government’s work to com- phobia, for example. bat racism and hate crime is priori­ tised and this National plan is at Work to combat these forms of hos- the heart of this work. In addition tility are a self-evident part of the to that set out in this plan, work is plan and its measures, but for lin- in progress which interacts with the guistic reasons sometimes only the focus of the plan in various ways. word “racism” is used in cases where Policy areas involved include: homophobia, biphobia and trans- phobia are also covered. Democracy policy The objective of democracy policy is Hate crime a living democracy which strength- The term “hate crime” refers to the ens the individual’s opportunity to crime of agitation against a national exert influence. All people must feel

12 A comprehensive approach to combat racism and hate crime that they have a part to play in de- mocracy and everyone must have good opportunities to have their voice heard on issues that concern and involve them. Initiatives to in- clude citizens who do not currently participate are important to create a more equitable and cohesive society and to increase motivation to vote in general elections. There is a close link between the fundamental val- ues of democracy and the principles of . Greater awareness of and support for the fundamen- tal values of democracy go hand in hand with greater support for free- dom of expression, the principle of the equal value of all people and distancing oneself from racism and similar forms of hostility.

Actively working to remind peo- ple of and discuss the fundamen- Susanne Sznajderman-Rytz, at a tal principles of democracy also dialogue meeting on anti-Semitism as strengthens resistance to racist part of the Samling mot rasism initiative in autumn 2015. ideas and ideologies. Therefore, the Government sees a need to protect democratic debate and encourage bringing people together in an in- creasingly polarised social climate. In 2017 the Government will pres-

Ministry of Culture and Ministry of Justice 13 ent an action plan to protect demo­ The Government has strongly cratic debate against threats and stepped up efforts to prevent vio- hate. The action plan will introduce lent extremism and terrorism. The strategic and systematic efforts to important preventive initia- prevent vulnerability, threats and tive is the mandate of the National hate in the public sphere and affect- Coordinator for Safeguarding De- ing key actors engaged in public de- mocracy against Violent Extrem- bate. ism. This role will continue until January 2018. A number of agencies Violent extremism also have ongoing mandates to de- Measures that seek to prevent vio­ velop their work, e.g. regarding sup- lent extremism also prevent rac- port for different groups of staff in ism and hate crime to a certain ex- developing their knowledge. tent. Violent extremism in Sweden mainly exists in three spaces: right- Welfare and routes into education wing extremism, left-wing extrem- or employment ism and Islamist extremism. De- Sweden is to be a country that is spite major ideological differences cohesive in terms of gender equal- between them, the way in which ity, development and employment. they ignore democratic principles Growth and prosperity in Sweden and rules of engagement is a fea- must benefit everyone. Cutting un- ture they share, which constitutes employment, increasing employ- a threat to fundamental democrat- ment and working to make Swe- ic values. The violence that these den a leading knowledge nation groups target towards individuals are priority issues for the Govern- due to their political or religious ment. Every child and young per- conviction, ethnicity, sexual orien- son, irrespective of gender, back- tation, gender expression or gender ground or disability, must be given identity, for example, constitutes an a firm footing on which to stand, on the principle of the equal and adults must have good access value and rights of all people. to education throughout their lives,

14 A comprehensive approach to combat racism and hate crime wherever in Sweden they may live. The focus of establishing newly ar- Jointly financed welfare services rived immigrants in Swedish socie- are a central part of the Swedish ty is for activities and initiatives in model. Public welfare contributes this field to better place new arrivals towards cohesion, equality and gen- to gain a foothold and become en- der equality in society. gaged in society and in working life. Efforts to give newly arrived immi- It is important to combat polarisa- grants the grounding they need to tion, racism and similar forms of quickly enter Swedish socie­ty are hostility in order to lay the founda- being stepped up. While this is a tions for a cohesive Sweden charac- major challenge, successfully es- terised by solidarity. An economic tablishing new immigrants in their policy to reduce unemployment, to lives in Sweden offers significant increase economic equality and for potential. Work is the key to newly vibrant rural communities is cru- arrived immigrants’ establishment cially important to a cohesive coun- in Sweden. For many such immi- try. grants, education is an important element in becoming established Housing segregation contributes on the job market. A society free towards physical separation and of racism and hate crime is a more fewer interfaces for contact be- welcoming society for newly arrived tween groups in society, creating immigrants who come to Sweden to a breeding ground for polarisation build a future. and poor understanding of other people’s perspectives and starting Other important elements in the points. The biggest housing policy Government’s work that are rele- initiative in more than two decades vant to this plan are youth policy is being carried out with the aim of and non-formal adult education stimulating more housing construc- policy. The objective of youth pol- tion over a long period in the light icy is that all young people are to of the prevailing housing shortage. have good living conditions, the

Ministry of Culture and Ministry of Justice 15 power to shape their lives and in- fluence on the way society devel- ops. The point of departure is to be Effective work human rights, young people being seen as individuals, young people against racism being supported to be independ- ent, and young people having an and hate crime opportunity to be involved and ex- promotes efforts ercise influence in society. Non-for- mal adult education has an impor- to attain the tant role to play in society and is an important element in work on a objective of a number of social challenges, includ- ing giving people an opportunity to society free from find work or discrimination. and promoting a rich and inclusive cultural life.

The National plan to combat rac- ism and hate crime is to play a part in the Government’s efforts in these areas.

Human rights The objective of the human rights policy is to ensure full respect for Sweden’s international human rights obligations. Issues concern- ing racism and hate crime are in- cluded in several of Sweden’s inter- national commitments.

16 A comprehensive approach to combat racism and hate crime The Government recently decided and men to have the same power on a Government strategy for na- to shape society and their own tional implementation of human lives. In November 2016 the Gov- rights (Comm. 2016/17:29). The es- ernment presented the communi- sence of the strategy is that com- cation Makt, mål och myndighet – pliance with Sweden’s international feministisk politik för en jämställd obligations on human rights can- framtid (Power, goals and agency – not be taken for granted, neither in a feminist policy for a gender equal the short nor the long term. Instead, future) (Comm. 2016/17:10) on the continued steps must be taken to- direction of policy wards a cohesive structure to pro- and measures for strategic, cohe- mote and protect human rights. sive and long-term governance in the field of gender equality. Effective measures against racism and hate crime contribute towards The Government has decided the objective of ensuring full respect that the gender equality perspec- for Sweden’s international human tive must be incorporated in the rights obligations. Combating rac- design of policy on a broad front, ism and similar forms of hostili- so that policy in all areas contrib- ty prevents the risk of individual’s utes to combating inhibiting gender rights being infringed. roles and structures. Gender main- streaming starts out from the in- Gender equality sight that gender equality is created Sweden has a feminist government. where resources are allocated, deci- Describing the Government as fem- sions made and norms created. inist signals greatly heightened am- bitions for a gender equal society In implementing gender equality which is to have a clear impact on policy, attention needs to be paid to policies and make a difference in power structures other than those people’s lives. The aim of the gen- based on gender, such as class, eth- der equality policy is for women nicity, sexual orientation and gen-

Ministry of Culture and Ministry of Justice 17 der identity. There is a considera- missioned to propose how work to ble overlap and interaction between combat discrimination can be or- and racism. Therefore it is ganised and made more efficient important that work is integrated (dir. 2014:10). This includes sug- and intersectional, taking into ac- gesting how work to combat dis- count these and other power struc- crimination could be organised at tures. This contributes to better local and regional level. priorities and more accuracy in im- plementation. This being the case, Effective work against racism and efforts to combat racism and simi- hate crime promotes efforts to at- lar forms of hostility and hate crime tain the objective of a society free can also contribute to efforts in the from discrimination. Preventing field of gender equality and combatting racism and similar forms of hostility also prevents the Discrimination risk of people being disadvantaged The aim of discrimination policy by being treated worse than oth- is a society free of discrimination. ers due to their ethnicity, religion, Work to combat discrimination and sexual orientation or gender identi- discriminatory structures requires a ty, e.g. when applying for a job or a number of different measures at dif- place at an educational institution. ferent levels. Compliance with the Discrimination Act (2008:567) is a The equal rights and opportunities central element in this work. of LGBTQ people Work on the equal rights and op- The Equality Ombudsman plays a portunities of LGBTQ (lesbian, gay, central role in monitoring compli- bisexual, and queer) ance with the Discrimination Act people is based on the National and is to work to ensure that the strategy for equal rights and op- forms of discrimination set out in portunities regardless of sexual ori- the Act do not occur in any areas of entation, gender identity or gender society. An inquiry has been com- expression. The Government has

18 A comprehensive approach to combat racism and hate crime introduced a number of initiatives within the remit of the strategy.

Implementing the strategy has re- sulted in greater awareness of the situation and lives of LGBTQ peo- ple, particularly regarding vulnera- bility and ill-health. Questions con- cerning the situation of LGBTQ people have also gained increased visibility in the work of concerned agencies. Work on the strategy has generated an additional underly- ing knowledge base and, accord- ing to new reports, LGBTQ people remain a vulnerable group in soci- ety in terms of discrimination, har- assment, threats and violence, lead- ing to major differences, including regarding health. LGBTQ people have poorer mental health, and su- icide and suicide attempts are more common. Work for the equal rights Frank Berglund, at a dialogue meeting on and opportunities of LGBTQ peo- homophobia and transphobia as part of ple thus needs to be strengthened, Samling mot rasism in autumn 2015. particularly through initiatives to combat homophobia, biphobia and transphobia.

Ministry of Culture and Ministry of Justice 19 National minorities There continues to be a great need The national minorities have been for awareness of the Act on Nation- vulnerable and marginalised in al Minorities and National Minor- Swedish society at different periods. ity Languages among government Attacks on and abuse of individu- agencies and among municipalities als was seen long into the twenti- and county councils. Initiatives are eth century, partly within the remit therefore in progress to provide in- of racial biology research, and in- formation and spread knowledge cluded forced registration of ethnic- about the Act and its application. ity, collective forced migration and The Government has also appoint- eviction by the powers of the state, ed an inquiry to review and analyse forced sterilisation and being taken the Act on National Minorities and into care or custody. Anti-Semitism, National Minority Languages and anti-Gypsyism and racism against related issues (dir. 2016:73). Regard- Sami need to be highlighted and ing efforts towards Roma inclusion, combatted. agencies have recently been given new and extended mandates intend- The five recognised national mi- ed to aid the implementation of the norities in Sweden are Jews, Roma, Strategy for Roma Inclusion. Sami, Sweden Finns and Tornedal- ers. The minority languages are The Sami people Yiddish, Romani Chib, Sami, Finn- The racism that has been direct- ish and Meänkieli. Work for the na- ed, and is still directed, against the tional minorities is based on the aim Sami population should be high- of protecting them and strength- lighted and tackled. Steps are being ening their opportunities for influ- taken within the remit of the Gov- ence and participation. Compliance ernment’s work to combat racism. with the Act (2009:724) on Nation- Combating racism against Sami al Minorities and National Minori- helps to increase the Sami people’s ty Languages is crucial to this work. opportunities for self-determination.

20 A comprehensive approach to combat racism and hate crime The Government has stepped up negotiations on a Nordic Sami con- Sweden’s vention in order to strengthen and clarify the rights of the Sami peo- international ple to protect and develop their language, their culture, their liveli- undertakings hoods and their community. on human rights International undertakings serve as an and the work of international bodies important point Sweden’s international undertak- ings on human rights and the rec- of departure for ommendations and opinions that work to combat Sweden receives in international re- views serve as an important point of racism and hate departure for work to combat rac- crime. ism and hate crime. The UN Issues concerning racism and hate crime are covered by several of the UN’s conventions and covenants on human rights. The instrument that has the greatest impact on work to combat racism and hate crime is the International Convention on the Elimination of All Forms of Ra- cial Discrimination. Countries that have ratified the Convention have undertaken to abolish all discrim-

Ministry of Culture and Ministry of Justice 21 ination on grounds of race, colour, The United Nations Human Rights descent or national or ethnic origin. Council conducts a broad review of The Committee on the Elimination the human rights records of all UN of comprises Member States (Universal Period- independent experts charged with ic Review, UPR). The most recent examining the steps that have been review of Sweden was carried out taken to comply with the provisions in 2015, in which a number of re­ of the Convention. Like all signato- commendations were made regard- ries to the Convention, Sweden is ing work to combat racism by the obliged to report to the Committee countries that participated in the on its compliance with the Conven- review. Sweden accepted a recom- tion. The Committee examines the mendation to adopt a national plan reports of the signatory states and to combat racism and hate crime. conducts a dialogue with the states concerned. Other UN instruments and work- ing groups within the UN that Sweden submitted its combined also address issues in this field in- nineteenth to twenty-first period- clude the International Covenant ic report on compliance with the on Civil and Political Rights (the Convention to the Committee in Human Rights Committee), the In- June 2012. A Swedish delegation at- ternational Covenant on Econom- tended a dialogue meeting with the ic, Social and Cultural Rights (IC- Committee in August 2013, and the ESCR) and the Working Group of Committee submitted its conclu- Experts on People of African De- sions and recommendations on the scent (WGEPAD). basis of its review shortly thereafter. These are addressed in more detail Council of below. Sweden is to submit its next The against periodic report by January 2017 at Racism and Intolerance (ECRI) was the latest. founded following a decision by the

22 A comprehensive approach to combat racism and hate crime Council of Europe. The Commis- sion works to combat all forms of racism, partly by publishing recom- mendations and best practice in- tended for the Council of Europe’s Member States. ECRI also car- ries out country visits, after which the Commission presents separate country reports with recommen- dations. The most recent report on Sweden was published in 2012. In 2014 Sweden wrote a report at the request of ECRI on Sweden’s fol- low-up to some prioritised recom- mendations in the ECRI report. ECRI has started its fifth monitor- ing cycle of Member States and will visit Sweden in 2017.

EU The Agency for Fundamental Rights (FRA) gives EU institutions and Member States evidence-based advice and exper- tise on fundamental rights. FRA is an independent EU institution and racism and related intolerances is one of nine themes that the agen- cy is working on in its current pro- gramme.

Ministry of Culture and Ministry of Justice 23 Diana Nyman, at a dialogue meeting on anti-Gypsyism as part of Samling mot rasism in autumn 2015. 2. Racism, similar forms of hostility and hate crime in Sweden today

Trends in Sweden are complex. Ac- The end of this section provides a cording to research, most indica- more in-depth status report on the tions are that Swedish society is de- different forms of racism and simi- veloping in a positive direction in lar forms of hostility. terms of greater openness. On the other hand, many people who are Attitude and experience the victims of racism bear witness surveys to a social climate in which more Attitude surveys are one way of ob- people are expressing racist opin- taining an indication of how wide- ions. The social climate has become spread various attitudes are in so- more polarised and public debate ciety and trends in these attitudes more filled with hate. over time. It is important to shine a spotlight on racist and hostile at- If Sweden is to be an equal society titudes in order to counteract their characterised by solidarity, major expression and increase awareness disparities between different groups of the equal value of all people. are unacceptable. Inequality on the The majority of attitude and expe- basis of ethnicity or religious con- rience surveys reported below focus viction must be combated in the on different related aspects, e.g. the same way that we have fought to existence and experiences of intoler- eradicate inequality based on class ance and discrimination on various or gender. This demands efforts grounds. Attitudes regarding migra- against racism and hate crime that tion and immigration are also rele- are effective and address the atti- vant data in this context. tudes and values found in society today. In 2014 the Living History Forum published its report Time for Toler- This part of the plan describes what ance. Its survey shows that Swedish the situation regarding racism and school pupils have become more tol- hate crime in Sweden looks like erant in their attitudes to different today, drawing on various sources. people over time. The levels of tol-

Ministry of Culture and Ministry of Justice 25 erance differ, however. For example, rights as people born in Sweden has young people have more positive decreased from 77 per cent in 2014 attitudes towards LGBTQ people to 55 per cent in 2016. than to the other groups included in the survey. According to the Living The statement “there are too many History Forum, most indications foreigners in Sweden” has been in- are that Swedish society is develop- cluded in the SOM Institute’s na- ing in a positive direction in terms tional surveys on six occasions of greater tolerance and openness. between 1993 and 2009. The pro- portion of responses agreeing with The Barometer, a study this statement has decreased over carried out by the University of time. The proportion of respond- Gävle since 2013, has been annu- ents that think “taking in fewer ally surveying the Swedish popu- is a good idea” is also de- lation’s attitudes to ethnic diversity creasing. In 1992, 65 per cent of re- since 2005. The report Mångfalds- spondents thought this was a good barometern 2016 (Diversity Baro­ idea, while in 2015 this figure had meter 2016) shows that 64 per cent decreased to 40 per cent. of those questioned are positive to- wards there being people with a dif- In the SOM survey for 2015, the ferent background and culture than proportion who think the situation Swedish in society. The proportion today is “very worrying” for the fu- of people with a positive attitude to- ture in terms of increased racism is wards diversity decreased by 10 per- 41 per cent, and in terms of increased centage points compared with 2014, , 40 per cent. These types the last year in which the survey of concern come in at fourth place was carried out. One of the major and sixth place respectively in a list changes shown in the study is that of 20 biggest concerns for the future. the proportion of people questioned Concern about a higher number of who think that newly arrived mi- refugees was in 13th place, cited by grants should have the same social 29 per cent of respondents.

26 A comprehensive approach to combat racism and hate crime In the most recent Eurobarome- The Expo Foundation’s report ter (2014), out of the 34 European Stängda dörrar (Closed doors) (2015) countries in the survey, Swedes are describes a number of aspects of ex- the most positive towards immigra- posure to discrimination and hate tion (72 per cent of respondents). crime that emerged in interviews In the World Values Survey (2014) with people belonging to differ- 14 per cent of those questioned in ent vulnerable groups. This data Sweden agreed with the statement shows that schools are felt to repro- “when jobs are scarce, employers duce racism and , that the should give priority to people of this internet is an arena where people country over immigrants”. When feel vulnerable, that trust in the au- asked “how frequently does rac- thorities is low, and that there is a ist behaviour occur in your neigh- lack of awareness of the law, rights bourhood?” 13.5 per cent answered and routes for redress. According “very frequently” and 84 per cent to the report, in the world of edu- answered “not at all frequently”. cation there is a lack of knowledge When asked which groups they about those who belong to vulner- would not like to have as neigh- able groups, and and bours, 2.8 per cent answered peo- generalisations prevail. Particular ple of a different race, 3.5 per cent vulnerability is experienced online, answered immigrants/foreign work- especially on social media where it ers and 3.7 percent answered people is difficult to remove abusive and of a different religion. These are sig- racist comments and difficult for nificantly lower percentages than victims to gain redress. The report most of the other countries includ- also shows that there is a lack of ed in the survey. awareness of what a hate crime ac- tually is and how the Discrimina- In recent years, experience surveys tion Act works. Victims are uncer- have shown how people feel that tain or unaware that various kinds they are affected by racism and simi- of harassment can be reported. lar forms of hostility and hate crime.

Ministry of Culture and Ministry of Justice 27 The qualitative study released by ter. Nor is there a specific crime the Equality Ombudsman, report- code under which a hate crime is ed in Upplevelser av diskriminering registered when a police report is (Experiences of discrimination) made. However, a compulsory ques- (2010) shows that many people ex- tion in the police reporting sys- perience discrimination from actors tem asks whether the crime could or in situations that are not covered be judged to be a hate crime. This by discrimination legislation as it marker was added to draw the at- currently stands. These may, for tention of the individual police of- example, concern stated negative ficer to any hate crime aspects, not or discriminatory attitudes and be- to make it easier to produce statis- haviours that are associated with tics. The Swedish National Coun- Islam and reflected in the media. cil for Crime Prevention has shown The study also shows experiences that incorrect use of this marker is of norms in society that give rise to so common that this information discriminatory attitudes and behav- cannot be used to produce reliable iours towards people who do not fit statistics. The hate crime statistics the template in different situations. instead rely on police reports that have been judged to constitute hate Hate crime statistics crime following special scrutiny by Police reports with an identified the Swedish National Council for hate crime motive Crime Prevention. Each year the Swedish National Council for Crime Prevention (Brå) The statistics on reported hate publishes statistics on police reports crime can give an indication of with an identified hate crime mo- how hate crime is noted in police tive. Because hate crime encompass- reports as well as information on es many different types of crime the events reported. However, they and is often defined by the motive say very little about the prevalence of the crime, producing statistics on of hate crime in society because this type of crime is no easy mat- many criminal acts are not report-

28 A comprehensive approach to combat racism and hate crime ed. The statistics report hate crime with xenophobic/racist (Afrophobic and anti-Roma sentiments are re- ported separately under this head- ing), anti-Semitic, Islamophobic, Christianophobic, other antireli- gious, homophobic, biphobic, het- erophobic and transphobic motives. The Swedish National Council for Crime Prevention’s report Hate Crime 2015 (2016:15) states that just over 6 980 reported in 2015 were estimated to involve an iden- tified hate crime motive. This is the highest level ever, up 11 per cent on 2014. The increase can largely be explained by a rise in the number of reports of damage and graffiti with a xenophobic motive. It is not possi- ble to determine whether the higher number of reports is due to greater exposure, increased willingness to report, or that more attention Jallow Momodou, at a panel debate as is being paid to hate crime in the part of Samling mot rasism at the Swedish reports. Looking at reported hate Forum for Human Rights in 2015. crime motivated by sexual orienta- tion, the figures were at the same level as in 2013, and the number of such crimes has dropped by 18 per cent overall in the past five years.

Ministry of Culture and Ministry of Justice 29 Number of police reports with an identified hate crime motive, 2011-2015

Change Change compared compared 2011 2012 2013 2014 2015 w. 2014, % w. 2011, %

Xenophobic/ racist 3 936 3 979 3 999 4 314 4 765 10 21 Afrophobic 803 940 980 1 075 1 074 0 34 Anti-Roma 184 215 233 287 239 -17 30 Anti-Semitic 194 221 193 267 277 4 43 Islamophobic 278 306 327 492 558 13 101 Christianofobic 162 200 191 334 388 16 140 Other anti-religious 17 58 130 155 331 114 1 847 Sexual orientation 854 713 625 635 602 -5 -30 Homophobic 839 694 613 597 576 -4 -31 Transfobic 52 41 45 72 62 -14 19

Total 5 493 5 518 5 508 6 269 6 984 11 27

30 A comprehensive approach to combat racism and hate crime Person-based clearances has fallen slightly compared with Few of the reported hate crimes 2011 and earlier, where the rate was were person-based clearances. Per- 7–8 per cent. A lower person-based son-based clearance means that clearance rate has also been seen for legal action has been taken against reported crime in general, irrespec- at least one person through an in- tive of motive. As far as hate crimes dictment, the issuance of a summa- are concerned, changes in the char- ry sanction order or the issuance of acter of the reported criminality a waiver of prosecution. Accord- may also have led to this drop. Be- ing to statistics from the Swedish tween 2008 and 2015, the propor- National Council for Crime Pre- tion of reported violent crimes with vention, a total of 4 per cent of a hate crime motive has fallen, while the identified hate crimes report- the proportion of cases of inflicting ed in 2014 were person-based clear- damage/graffiti has increased. In ances, which is roughly the same general, person-based clearance for level as the year before. The low inflicting damage/graffiti is more person-based clearance rate is not difficult than for assault, as witness- unique for crimes motivated by es can often provide evidence for hate. The types of offence that such crimes, for example. mainly occur, such as molestation, and inflicting damage Exposure to hate crime according to generally have a low person-based the Swedish Crime Survey clearance rate. Hate crime is also To supplement the reporting statis- generally hard to investigate and de- tics, the Swedish National Council mands special expertise. Identifying for Crime Prevention also reports and being able to prove the motive on experienced exposure to xeno­ is a major challenge for investigators phobic, anti-religious and homo- and prosecutors. phobic hate crime as part of the Swedish Crime Survey. This pro- The proportion of person-based vides a more accurate picture of ex- clearances of reported hate crime posure to hate crime than the po-

Ministry of Culture and Ministry of Justice 31 lice report statistics. However, it is difficult to draw sound conclusions even using this data, partly because the survey does not reach the most marginalised groups in society and solely measures exposure among the Swedish population listed in the population register. Furthermore, very few people surveyed state that they have been the victim of hate crime, making any changes difficult to interpret. Compared with previ- ous years, exposure to hate crime remains relatively level, for all mo- tives. Exposure to hate crime with a xenophobic motive is the high- est stated. According to the Swed- ish Crime Survey, 1.4 per cent of the population were the victims of xenophobic hate crime in 2014. The proportion of the population sub- jected to anti-religious hate crime Alfie Martins, at a dialogue meeting on was 0.5 per cent and the proportion homophobia and transphobia as part of suffering homophobic hate crime Samling mot rasism in autumn 2015. was 0.2 per cent.

Status reports and proposals from civil society actors Civil society is a key actor in efforts to combat racism and foster inclu- sion. The Government has ongo-

32 A comprehensive approach to combat racism and hate crime ing contact with a broad range of sentatives have conducted dialogue civil society organisations, includ- on these issues in other contexts ing non-formal adult education too. These dialogues were held with organisations and a wide range of representatives of central organisa- member-based movements that tions representing groups subjected have been working on these issues to racism, similar forms of hostil- for a long time. Many organisations ity and hate crime, and with gov- demonstrate a great commitment to ernment agencies with a particular openness and inclusion among their mandate in this area. The activities members, expressed in a wealth of in conjunction with Samling mot activities in sport, local heritage, the rasism involved intensifying work youth movement, churches and the in this sphere as well as preparatory anti-racist movement. This com- work ahead of this plan. mitment has been strong histori- cally and has shaped Sweden as a In these dialogues, representatives country. It has been clearly seen of the organisations gave accounts in the situation in the past year in of the “everyday racism” that many which many refugees have come to who belong to these groups con- Sweden and where civil society has stantly live with. This is expressed put in a great deal of effort, based through racist, derogatory and pre­ on huge commitment from mem- judiced statements. Everyday rac- bers, donors and volunteers. ism has affected groups in differ- ent ways. As preparatory work for this plan, the Government carried out aware- Various representatives asserted that ness-raising activities and dialogues that people from their group feel on racism and similar forms of hos- that structural racism exists in Swe- tility at different places in the coun- den. Representatives also consid- try in autumn 2015 under the head- ered that in some cases this has led ing Samling mot rasism (Gathering to a large proportion of the group against racism). Government repre- suffering general exclusion, where-

Ministry of Culture and Ministry of Justice 33 by the group does not gain access Representatives of different groups to their rights to the same extent asserted that racism and hate crime as the majority population. This affect men and women in different affects Roma, Sami, Afro-Swedes ways. Roma and Muslim women and Muslims, for example. Another bear witness that harassment and issue raised in the dialogues was the hate crime affect women to a great- existence of racism between indi- er extent than men. viduals and groups outside the ma- jority population. In conjunction with the dialogues under the Samling mot rasism um- People are sometimes forced to hide brella, the lack of information on their identity and develop surviv- how racism affects different groups al strategies in their daily lives in and the need to survey the problems order to avoid harassment, threats that these groups suffer by gather- and violence. For example, there ing further data were highlighted. are Jews, Roma, Sami and LGBTQ people who cannot risk living open- According to certain researchers ly as members of a particular ethnic and several representatives of vul- group, a religion or national minor- nerable groups, there is a lack of re- ity or as having a certain sexual ori- sources in the research community entation or gender identity. to be able to provide a better pic- ture of the situation regarding rac- Another element raised was that ism and similar forms of hostility specific forms of racism, e.g. Afro- in Sweden. phobia, anti-Semitism and anti- Gypsyism, are not felt to be suffi- Representatives of different groups ciently highlighted, and are even stated that there is a lack of knowl- rendered invisible when general in- edge of the mechanisms of rac- itiatives against racism are carried ism and on the particular forms of out at various levels. racism and similar hostility. They would like to see education initi-

34 A comprehensive approach to combat racism and hate crime atives in these areas. Schools and Greater civil society activity, visi- teachers are important target groups bility and influence in the past few according to these representatives, years have led to greater racist ac- but several other important target tivity against individuals and or- groups and occupational groups ganisations, according to several have also been highlighted as being representatives who participated in important, such as social services Samling mot rasism. Elected repre­ employees and the police. Attention sentatives are increasingly suffer- was also paid to the important role ing various forms of racist threats played by non-formal adult edu­ and hate. Some representatives have cation. stated that racism and hate crime have significantly weakened civil Representatives of groups that are society’s opportunities for activism exposed to racism also cited a lack and its ability to carry out activi- of teaching materials on racism and ties on safety grounds. For exam- the forms it takes, its history, con- ple, Jews and Muslims provided sequences and links to contempo- evidence that criminal damage, rary developments. In terms of ex- vio­lence and threats restricted civil isting teaching materials, there is a society to the extent that they were demand for these to be examined sometimes forced to cancel activi- in order to raise the visibility of the ties, stop their operations or put in different forms of racism and to place rigorous and costly safety pre- combat prejudiced negative carica- cautions. tures in the material. Several representatives stated that In conjunction with the dialogues, they are experiencing an increase claims have also been made that in racist and prejudiced caricatures, there is a need for greater support and stereotypes and depictions – both of for more stable forms of financing people within the groups and of the for civil society’s efforts to combat groups as collectives – in the media racism and similar forms of hostility. and online. For example, a great in-

Ministry of Culture and Ministry of Justice 35 crease in anti-Semitic and Islamo- phobic conspiracy theories has been seen on the internet. Incorrect links SverigeSome represent bör ­ being drawn between political phe- nomena and the collective respon- utarbetaatives have en stated sibility of specific groups for these also generate racism and hate crime. strategithat racism för and att hate This concerns, for example, Jews säkerställacrime have tillsynsignifi ­ linked to the actions of the State of Israel in the Israel-Palestine con- övercantly polisens weakened flict, and Muslims linked to Islamic terrorist activity. ochcivil society’såklagares

In conjunction with the dialogues, hanteringopportunities av for several representatives expressed the hatbrott.activism and its view that it is important to draw attention to how different forms ability to carry out of racism have characterised Swe- den and parts of its population over activities on safety the course of history. In their view, grounds. there is a need to highlight this through memorial days or monu- ments. It is felt that this type of at- tention would provide a clearer ad- mission of what happened in the past and may help to foster greater understanding of the consequences of racism. The contribution made by the national minorities and the indigenous Sami population to Sweden’s history and cultural her-

36 A comprehensive approach to combat racism and hate crime itage should also be highlighted in Status report and proposals the view of the representatives. from Government bodies In its report Främlingsfienden inom Some of the representatives involved oss (The xenophobe within) (SOU in the dialogues within Samling mot 2012:74), the inquiry into more ef- rasism cited a lack of initiatives in fective work to combat xenopho- the field of the arts to promote and bia and similar intolerance found render visible cultural expressions that work in this area is extremely that can also help to combat racism decentralised, carried out by dif- and similar forms of hostility. ferent agencies, municipalities and voluntary organisations, and that In conjunction with Samling mot it is therefore essential to gather rasism it was also asserted that hate information, evaluate different ac- crimes, such as agitation against a tivities and disseminate know­ national or ethnic group, are investi­ ledge. The inquiry also pointed to gated to far too little an extent and the need for monitoring, gathering that the legislation against online and spreading information on dif- hate crime is not working. Accord- ferent methods and experiences of ing to the representatives, there is the work being carried out in this no close collaboration or contact be- field. The inquiry found that work tween those who report hate crime can be made more effective by gath- and authorities within the legal sys- ering information on the initiatives tem. The need for a special helpline more systematically, evaluating the for all forms of hate crime was also initiatives and spreading knowledge raised. It was also said that the po- about their effects to different ac- lice service needs to step up its work tors. According to the inquiry, it is to combat hate crime and that spe- essential for one government agen- cial hate crime groups need to be cy to have a clear responsibility for established at local level. this.

Ministry of Culture and Ministry of Justice 37 Certain agencies that have a spe- According to the inquiry, xenopho- cific mandate covering initiatives bic attacks mainly target Islam and to combat racism also pointed out, Muslims. The inquiry therefore as part of the Samling mot rasism considered that it was necessary to initiative the need for better coor- boost information in this area by dination between different parties. giving the Living History Forum a To improve the efficiency of this long-term mandate to provide in- work, in the view of these agencies, formation about Islamophobia. there is a need to facilitate greater dissemination and greater exchange The inquiry further stated that a of knowledge, information and ex- large number of hate crimes go un- perience. reported and that there was a need to improve the statistics on reports In SOU 2012:74 the inquiry stated of hate crime and opportunities to that there is a need for school pupils follow up what happens to these in to be made aware that Sweden has the legal process. The report also been guilty of abuse in the past, and highlighted the importance of mo- therefore proposed that the Living bilising opposition to the rapid- History Forum be commissioned ly growing amount of xenophobic to provide information on xeno- propaganda online. phobia in Sweden’s modern histo- ry. The enquiry also recognised the Status report and proposals need to gain a better picture of how from international monitoring attitudes to xenophobia and other bodies forms of intolerance develop and The status report in this section is how work to combat xenophobia is provided drawing on examples of progressing in schools. recommendations and proposals made to Sweden by various inter- The inquiry also highlighted the national monitoring bodies. need for a special teacher training initiative focusing on human rights.

38 A comprehensive approach to combat racism and hate crime The UN’s Committee on the Elimi­ ported increase in agitation against nation of Racial Discrimination, a national or ethnic group in the ECRI and WGEPAD have recom- media and online. In the light of mended that population statistics this, both committees recommend- must cover more ethnic diversity ed that Sweden take action against indicators based on self-identifica- hate crime, including agitation tion through the anonymous pro- against a national or ethnic group, vision of data. in the media and online.

In its most recent monitoring of The UN’s Human Rights Commit- Sweden in 2013, the Committee tee has expressed concern at con- on the Elimination of Racial Dis- tinued reports of agitation against crimination also urged Sweden to a national or ethnic group and take necessary steps to promote tol- hate crime against Muslims, Af- erance, intercultural dialogue and ro-Swedes, Roma and Jews. The respect for diversity and focus these Committee has also expressed con- measures on particular occupation- cern regarding what the Committee al groups. has noted in the form of an increase in incidents of , The Committee on the Elimina- such as attacks on people who be- tion of Racial Discrimination, like long to religious minorities, e.g. the UN’s Human Rights Commit- Muslims and Jews, and their places tee in its most recent monitoring re- of worship, and regarding the num- port in 2016, has expressed concern ber of such cases that go unreported. regarding the continued occurrence of reports of agitation against a na- ECRI has urged Sweden to carry tional or ethnic group, e.g. against out supportive and awareness-rais- Muslims, Afro-Swedes, Roma and ing initiatives to ensure that provi- Jews. The Committee on the Elimi- sions regarding racism in criminal nation of Racial Discrimination has law are applied by all bodies in the also expressed concern over the re- legal system. The Committee has

Ministry of Culture and Ministry of Justice 39 also recommended that the agen- The Committee on the Elimina- cies concerned expand their initia- tion of Racial Discrimination has tives to raise the level of trust in the recommended that Sweden effi- police among groups that suffer rac- ciently investigate and prosecute all ism, similar forms of hostility and hate crime and take effective meas- hate crime. ures to combat hate propaganda in the media and on the internet and, The UN’s Committee on the Elimi­ where appropriate, bring the perpe- nation of Racial Discrimination trators to justice irrespective of their and the UN’s Human Rights Com- official status. ECRI has also re­ mittee have expressed concern re- com­mended that Sweden strength- garding what the committees view en its initiatives in this area. as the limited efficiency of meas- ures to combat hate crime and the About the different forms of reported discrepancy between the racism and similar forms of increasing number of police reports hostility in particular and the reduction in the number As stated in the plan, it is important of preliminary investigations and that work to combat racism, similar convictions, particularly regarding forms of hostility and hate crime is agitation against a national or eth- carried out on a broad front. At the nic group. The Committee on the same time, it is important to focus Elimination of Racial Discrimina- in particular on different forms of tion has recommended that Swe- racism and similar forms of hostili- den draw up a strategy to ensure su- ty. An overview of the situation re- pervision of the way the police and garding the different forms of rac- the prosecution service handle hate ism and similar forms of hostility is crime, increase the number of units provided below, drawing on differ- and people specialised in hate crime ent sources, e.g. reports, inquiries across Sweden and adopt a defini- and the information gained during tion of hate crime that is common Samling mot rasism. to all legislation.

40 A comprehensive approach to combat racism and hate crime Afrophobia Afrophobia was found in our socie- ty during the period of transatlan- tic , and is still found in Swe- den today. This has been described by actors such as the Delegation for Human Rights in Sweden in the publication Slaveri nu och då – Rät- ten till frihet (Slavery now and then – The right to freedom), produced in 2007 as part of the commemo- ration of the 200th anniversary of the abolition of transatlantic slav- ery. On various occasions, includ- ing in conjunction with a dialogue on Afrophobia within the remit of Samling mot rasism, representa- tives of Afro-Swedes have spoken of their exposure to racist and harassment at school, discrimi­ nation in different areas of society and hate crime. They have assert- ed the need for steps to be taken Aya Mohammed, at a panel debate as against Afrophobic hate crime, that part of Samling mot rasism at the Swedish awareness-raising measures should Forum for Human Rights in 2015. be taken in partnership with repre- sentatives of Afro-Swedes, and that 9 October should be commemorat- ed as the anniversary of the abo- lition of Sweden’s participation in the transatlantic slave trade. Repre-

Ministry of Culture and Ministry of Justice 41 sentatives have also urged the estab- Anti-Semitism lishment of a Commission against According to various agencies in- Afrophobia. cluding the Living History Forum and the Swedish National Council The UN’s Working Group of Ex- for Crime Prevention, the exposure perts of People of African Descent of Jews and Jewish communities to (WGEPAD) visited Sweden in De- anti-Semitic acts mainly takes the cember 2014. The Working Group form of threats, agitation against wrote a report on Sweden based on a national or ethnic group and de­ this visit, drawing conclusions and famation. Throughout history, the making recommendations. The re- Jewish minority has been forced to port was published in September endure widespread discrimination 2015 and describes problems and and , in Sweden and submits recommendations in line in other countries. While atten- with those made by representatives tion is often paid to , of Afro-Swedes. contemporary expressions of anti- Semit­ism tend to be excused. Ac- The report Afrophobia – A research cording to representatives of Jewish review of the situation of Afro-Swedes organisations, Jews are exposed to in contemporary Sweden produced threats and violence both from left- by the Multicultural Centre in 2014 wing extremists and right-wing ex- states that Afro-Swedes are huge- tremists, as well as Islamic extrem- ly affected by Afrophobia. It also ists. shows that there is a lack of knowl- edge and awareness of the situation National and international reports of Afro-Swedes. have highlighted the issue of in- creased anti-Semitism in recent Current hate crime statistics regard- years in various ways. Experienc- ing Afrophobic hate crime were set es of vulnerability, threats and hate out in the proceeding section. have increased among Jews in Swe- den recently. In some cases this can

42 A comprehensive approach to combat racism and hate crime even result in people fleeing their and other reports show that this has home towns. The issues of the safe- had far-reaching effects on Roma in ty of Jews in Sweden and the need the form of traumatic memories and for measures to improve this have poorer physical and mental health. been raised by representatives of this group for many years. This picture is confirmed by the Commission against Anti-Gypsy- Current hate crime statistics regard- ism, whose final report Kraftsamling ing anti-Semitic hate crime were set mot (Concerted ac- out in the proceeding section. tion against anti-Gypsyism) (SOU 2016:44) found that the situation Anti-Gypsyism of Roma in Sweden today remains Historical anti-Gypsyism, and sys­ serious. In reports and special ini- te­matic discrimination against tiatives, the Equality Ombudsman Roma that has existed for cen- and the Living History Forum turies, which was documented in have shown that Roma in Sweden the Government’s White Paper on are a group that particularly suf- abuses and rights violations against fers discrimination and hate crime Roma in the twentieth century (Ds in everyday life. Bodies within the 2014:8) has had consequences in UN and the Council of Europe terms of the Roma community’s also confirm widespread discrimi- trust in authorities and other re- nation and anti-Gypsyism in Swe- presentatives of society. Anti-Gyp- den. Several reports raise the issue syism in Swedish society and the that Roma women are particularly abuse that has characterised Roma affected by the situation. Represent- history over a long period combine atives of Roma organisations assert to inhibit the opportunities of Roma the need for initiatives, e.g. special to participate in society on equal education initiatives on anti-Gypsy- terms and mean that many Roma ism and on society’s abuse of Roma continue to be a marginalised group throughout history, as described in in Swedish society. The White Paper the White Paper.

Ministry of Culture and Ministry of Justice 43 Current hate crime statistics regard- ing anti-Roma hate crime were set out in the proceeding section. People are also Islamophobia sometimes According to representatives of Muslim organisations, stereotypes forced to hide of Muslims and propaganda against their identity and Muslims are widespread on the in- ternet and in social media, as has develop survival also been pointed out by interna- tional bodies. Islamophobia is part- strategies in their ly directed against refugees from Muslim countries. Women wearing daily lives in Muslim dress also state that every- order to avoid day racism affects them in public places, such as in shops or on public harassment, transport where they are the victims of abuse and threats. Muslim com- threats and munities are exposed to threats and violence. their places of worship are vandal- ised. According to representatives of Muslim organisations, many Mus- lims in Sweden feel that they are collectively being blamed for Islam- ic terror threats.

In 2015 the Equality Ombudsman published a report on research into Islamophobia and discrimination

44 A comprehensive approach to combat racism and hate crime against Muslims. The report shows Current hate crime statistics regard- that Islamophobia is expressed in ing Islamophobic hate crime were forms such as threats, violence, set out in the proceeding section. taunts, abuse in the media, poorer opportunities to gain employment, Racism against Sami and harassment at school. When To understand the racism that searching for work, people assumed many Sami bear witness to today, to be Muslim received a lower re- it is important to understand the sponse rate than those who were not historic racism that Sami as a group assumed to be Muslim. have experienced in Sweden. The Swedish State Institute for Racial Organisations in which Muslims Biology was founded in 1922 in come together have proposed, Uppsala, charged with systemati- among other things, that initiatives cally conducting an inventory of the against Islamophobic hate crime entire Swedish population. The In- must be stepped up, that aware- stitute was particularly interested in ness-raising initiatives concerning surveying the Sami group, catego- Islamophobia should be implement- rised as a “degenerate and less-de- ed and aimed at both the general veloped race”. The same period saw public and at particular occupation- the development of State Sami pol- al groups, that Muslim representa- icy, which rested on the view that tives should be used as a resource the reindeer-herding Sami popula- in implementing these initiatives, tion in particular were uncivilised. that Srebrenica Memorial Day on For this reason, a segregationist 11 July should be commemorated as policy was designed, whereby the a reminder of the of Mus- children of Sami reindeer herd- lims, and that special crisis groups ers were forced to attend separate should be set up as part of society’s schools and, during a certain peri- work on civil contingency planning. od, were not allowed to live in or- dinary homes.

Ministry of Culture and Ministry of Justice 45 Many Sami in northern Sweden tes- tify to racism at local level today. This can be expressed as bullying at school and threats of violence and abuse on social media. Indi- vidual Sami also attest that cruel- ty to reindeer is seen in northern Sweden, which they consider can be linked to a racist view of Sami. Many Sami, mainly young people, assert that Swedish society is large- ly unaware of Sami conditions. This situation also contributes towards documented poorer mental health among young Sami people.

Homophobia, biphobia and transphobia Homosexual, bisexual, transgender and queer people (LGBTQ people) are a vulnerable group in society in many respects. It is true that so- Simon Wetterlund, at a dialogue meeting ciety has become more open and on racism against Sami people as part of that formal protection against dis- Samling mot rasism in autumn 2015. crimination has been strengthened. Despite this, homophobia, bipho- bia and transphobia affect LGBTQ people in different situations and in different areas. This has been demonstrated in reports by several government agencies.

46 A comprehensive approach to combat racism and hate crime Representatives of LGBTQ organ- mental ill-health, suicidal thoughts isations state that LGBTQ people and suicide among LGBTQ people. often face being rendered invis- ible, discriminated against, har- Reports by the Swedish Nation- assed, and subjected to violence and al Institute of Public Health show threats of violence. According to a a clear picture of how widespread new study carried out by the Na- transphobia is in society. Transgen- tional Board of Health and Wel- der people state that they are the fare, long-term and serious stress victims of discrimination and seri- as a result of discrimination creates ous abuse in all areas of their lives – increased mental ill-health among at work, at school, in shops, in con- LGBTQ people. According to the tact with government agencies and study, depression, psychoses and at- in the health sector. Many feel un- risk use of alcohol are more com- safe on a daily basis and are afraid mon. There is also an increased risk to go out alone. According to the of suicide. The Swedish Agency for report, as many as one in five have Youth and Civil Society has report- been the victims of violence due to ed that young LGBTQ people find their transgender identity and one school an unsafe place. The agency in three have been the victims of also reported that young LGBTQ mental abuse. people tend, more than others, to be the victims of honour-related Current hate crime statistics regard- violence and related to ing homophobic and transphobic their parents’, guardians’ or other hate crime were set out in the pro- family members’ intolerance linked ceeding section. to their sexual orientation, gender identity or gender expression. This is an expression of homophobia, bi- phobia and transphobia contribut- ing to a more frequent incidence of

Ministry of Culture and Ministry of Justice 47

3. Measures: Five strategic areas

On the basis of the status report The strategic areas are: and the proposals from civil and • More knowledge, education and Government actors and from in- research ternational monitoring bodies re- • Improved coordination and ported in part two, the Government monitoring has identified five strategic areas as • Civil society: greater support and being crucial to attaining the plan’s more in-depth dialogue objective. The Government has • Strengthening preventive meas- identified the main problems that ures online exist in these strategic areas and • A more active legal system the measures that should be taken in addition to those already in pro- gress.

Ministry of Culture and Ministry of Justice 49 Strategic area: More knowledge, 1 education and research

The Government considers that by promoting democracy, there schools are a key institution in the is a need for education specifical- long-term promotion of values that ly about different forms of racism are founded on the equal value of and hostility and about hate crime. all people and everyone’s right to There are several different forms of be treated as an individual on equal racism and similar hostility that can terms. Education gives people ac- emerge from different sources and cess to learning for their own per- also be expressed in different ways. sonal development and paves the The Government also considers it way for active participation in a important for relevant occupation- democratic society. Education gives al groups to be aware of this. This children and young people train- concerns occupational groups that ing in fundamental democratic val- work on questions concerning rac- ues and human rights. Racist ten- ism or similar forms of hostility in dencies must be actively combated their operations, or who in exer- and tackled with information and cising their authority as an agency open discussion. The inviolability or in their public operations come of human life and the freedom and into contact with people who are integrity of the individual are exam- exposed to racism or similar forms ples of values that are included in of hostility. This may involve school the value framework that the edu­ staff, employment service employ- cation system is to exemplify and ees, social workers and police em- convey. In this way, the school sys- ployees. tem plays an important role in pro- moting measures preventing racism The field of the arts incorporates in- and violent extremism. stitutions that are important sourc- es of knowledge with the capacity With the aim of contributing to- for broad-based outreach work, ca- wards an equal society character- pable of being important arenas for ised by respect for the equal value discussion and debate. According and equal rights of all people and to the objectives of national culture

50 A comprehensive approach to combat racism and hate crime policy adopted by the Riksdag, cul- search programme on racism that ture is to be a dynamic, challeng- has been launched, which is to de- ing and independent force based on velop knowledge and methods with freedom of expression. a scientific foundation. Research to increase understanding of the back- The Government thinks it is im- ground to racism, the development portant to draw attention to how of racism over time and its conse- different forms of racism have char- quences for people and societies acterised Sweden and parts of our needs to be strengthened, combined population throughout history, e.g. and form a basis for further develop- through special commemorative ment of this area of research that is days. There is a need to commemo­ of societal relevance. An even bet- rate particular memorial days on ter picture of the situation regarding which we remember attacks on dif- racism and similar forms of hostility ferent national or ethnic groups and in Sweden is needed. minorities. This kind of commemo­ ration also offers appropriate oppor­ Examples of current measures: tunities to deepen the debate on • The Living History Forum is car- how, today, we can move beyond rying out an extensive education the simplified assumptions and at- initiative on racism and similar titudes that still make racism pos- forms of hostility past and pres- sible. ent, which will run until 2017. The initiative covers Afropho- Research also plays an important bia, anti-Semitism, anti-Gypsy- role in shedding light on racism. ism, Islamophobia, homophobia Research into these issues has been and transphobia. The Forum is carried out for a long time now. producing information material To expand the field of research in on all these different forms and this area, the Government con- school staffs are being given train- siders that there is a need for the ing in partnership with the Swed- broad and multi-disciplinary re- ish National Agency for Edu­

Ministry of Culture and Ministry of Justice 51 cation within the remit of this initiative. • The Swedish National Agency for In the view of Education is carrying out aware- ness-raising initiatives in schools the Government, on the topic of racism until 2017. The Agency is producing materi- it is essential al for support on these issues and to establish a is carrying out in-service training for school staff on these issues in coordination partnership with the Living Hist­ ory Forum. and monitoring • The National Agency for Edu- cation is producing and carrying structure in out national school development order to attain programmes comprising various skills development and support the Government’s initiatives geared towards educa- tion providers and schools. The objective. initiatives cover ways and forms of working to develop initiatives on values in the school system. The values include actively com- bating racist tendencies and con- veying and embedding respect for human rights and fundamental democratic values. • The Swedish Agency for Youth and Civil Society is carrying out education initiatives on the basis of the Öppna skolan! (Open

52 A comprehensive approach to combat racism and hate crime school!) material up to 2016. tant element in this area is efforts These initiatives are geared to- to prevent violent extremism in wards school staff and seek to schools, including support for create an open and inclusive envi- teachers, recreation leaders and ronment for young LGBTQ peo- social workers. ple in schools. • The Living History Forum is ac- • The Equality Ombudsman is tively promoting the commem- carrying out awareness-raising oration of Holocaust Memorial initiatives on Afrophobia during Day on 27 January. The Forum 2016. also supports the commemora- • The Swedish Research Council tion of Roma Holocaust Memo- is allocating special funding each rial Day on 2 August. The Muse- year from 2016 onwards to bol- um of Work has commemorated ster research in the area of racism. Holocaust Memorial Day with This will enable a consistent re- upper secondary schools for seve­ search programme to be created ral years. which will gather and strengthen • In 2016 the Swedish Arts Council Swedish research in this field and is carrying out awareness-raising have an international character. initiatives on how different bodies • The Segerstedt Institute at the that make art and culture avail- University of Gothenburg de- able to the public can highlight velops and disseminates know­ norms and challenge negative ste- ledge and methods for reducing reotypes with the aim of helping recruitment to violent ideologies to shape a more open society. and movements and to racist or- ganisations. In 2016 the Institute Planned measures: is developing preventive work, • From autumn 2016 the Living particularly regarding young History Forum will expand its people who are in or on the mar- educational initiative on racism gins of violent extremist environ- past and present. This will part- ments. One particularly impor- ly involve carrying out education-

Ministry of Culture and Ministry of Justice 53 al initiatives on racism against controversial topics, such as rac- Sami, and expanding the target ism, extremism and terrorism. group of the initiative. In addi- Following this work, the Agency tion to school staff, occupational plans to publish material to sup- groups such as employment of- port teachers in Swedish schools fice staff, social workers and po- working with and tackling these lice employees will also have an issues in their teaching. opportunity to participate in this • The Swedish Agency for Youth training. The educational initia- and Civil Society will step up tive on racism past and present and extend its efforts to combat will also be extended to 2019. In homophobia, transphobia and bi- 2016 the Forum is reinforcing its phobia, drawing on the Öppna regional outreach work in many skolan! project until 2019. places in Sweden and among peo- • The Government intends to ple in different social groups. monitor how certain agencies in • Within their ongoing mandate the field of the arts are working on racism, the Living History to draw attention to or support Forum and the Swedish National the commemoration of memorial Agency for Education will joint- days in line with this plan and ly carry out commissioned train- their current mandates. ing for school staff at a number • In autumn 2016 the Swedish Re- of educational institutions from search Council will launch a re- autumn 2016 onwards. view of research into racism in • The Swedish National Agency the labour market. This will par- for Education has participated in ticularly address Afrophobia and the Council of Europe’s Teach- Islamophobia. ing controversial issues project, • The Segerstedt Institute at the which seeks to develop profes- University of Gothenburg’s man- sional development training and date to develop preventive work in supporting material for teachers schools will be extended to 2018. and educators on how to teach

54 A comprehensive approach to combat racism and hate crime 2 Strategic area: Improved coordination and monitoring

A number of actors are working racism and similar forms of hostil- on different issues concerning rac- ity. The Government will therefore ism, similar forms of hostility and consider the need for a particular hate crime in Sweden today. How- objective for the long-term work of ever, this work lacks coordination, a society in this area. monitoring system and joint report- ing of the various initiatives. Racism contradicts the principle of the equal value of all people and In the view of the Government, it ultimately poses a threat to all the is essential to establish a coordina- fundamental values on which de- tion and monitoring structure in mocracy rests. At its extremes, it order to attain the Government’s can lead to violent extremism and objective. There is a need for annu- terrorism affecting many people al monitoring that clearly sets out and large parts of society. However, developments in the area for both there are shortcomings in the public the Government and the Riksdag, sector’s readiness to deal with crises capable of serving as a basis for de- caused by racism and extremism. cision-making on future measures. The Government considers that Monitoring is to pinpoint short- there is a need to boost capacity to comings as well as improvements. counteract, resist and handle emer- This will help to drive development. gency situations caused by racism An agency will therefore be charged and extremism. with coordinating and monitoring work within the remit of the plan. All actors involved in working to In the long term, in the Govern- combat racism, similar forms of ment’s view, it may become relevant hos­tility and hate crime need a to make the job of coordinating and solid foundation of knowledge en- monitoring work in this area the abling them to reach decisions on permanent task of one agency. At the right initiatives. General infor- the moment the Riksdag has not mation on living conditions forms set an objective for work to combat an important, and often necessary,

Ministry of Culture and Ministry of Justice 55 basis for shaping and following up Planned measures: Government policy. Sweden takes a • The Living History Forum will restrictive view of statistics and data be responsible for coordinating collection in relation to the nation- and monitoring work within the al minorities, and the Government remit of this National plan to has no reason to re-evaluate this ap- combat racism and hate crime proach. However, it is important to during the period 2016–2019. show sensitivity to the circumstanc- The agency will regularly ex- es and needs of different groups. change experiences, knowledge and information, primarily with Examples of current measures: agencies working on these issues. • The Equality Ombudsman is Furthermore, the agency will surveying governmental and gradually develop a monitoring municipal agencies’ initiatives system encompassing regular re- against racism in 2016. porting based on the information • The Equality Ombudsman is de- the Forum receives from agencies veloping knowledge in the form affected as well as additional in- of quantitative and qualitative in- formation, e.g. from attitude and formation on how Afrophobia af- experience surveys. Each year the fects the access of Afro-Swedes to Living History Forum will report equal rights and opportunities. to the Government on its man- • During its mandate period, the date in a special report on devel- Government has so far increased opments in the area. appropriations for work to com- • From autumn 2016 onwards, bat racism, similar forms of hos- Dalarna County Administrative tility and extremism by SEK 156 Board will develop ways of work- million. In the 2017 budget the ing to combat social risks with a Government has proposed a fur- focus on racism and extremism, ther increase of SEK 40 million. as part of the County Adminis-

56 A comprehensive approach to combat racism and hate crime trative Boards’ work on civil con- tingency planning. The County Administrative Board will pass on the results of this work and submit proposals for any contin- ued initiatives in the field. • The Government will focus at- tention on what emerges in the inquiry on a stronger minority policy and in the Equality Om- budsman’s work on Afropho- bia regarding the need for more knowledge on the situation of particular groups. • The Government will investigate the conditions and situation in society of transgender people.

Ministry of Culture and Ministry of Justice 57 Strategic area: Civil society: greater 3 support and more in-depth dialogue

Civil society organisations are cen- cerns and make the most of both tral actors when it comes to pav- sides’ perspectives and expertise. ing the way for a cohesive Sweden. These organisations possess exten- Grants previously awarded to civil sive knowledge and great commit- society organisations in this area ment regarding racism and similar have had good results and impacts. forms of hostility and have many Greater knowledge and the fact that good ideas for measures. A num- the project’s activities will continue ber of projects are being run with once the funding has finished are the aim of producing and dissem- among the effects that have been inating knowledge, mobilising and identified. The Government consid- building capacity in work against ers that there is a need for funding racism or using various methods for projects to combat racism and to influence and change attitudes, similar forms of hostility run by or- norms and structures in society. ganisations in civil society.

The Government thinks that it is Examples of current measures: very important to conduct ongo- • The Government continuously ing dialogues, e.g. in the form of consults with Jewish, Roma and consultations or focused discussions Sami representatives within the between the Government and civil remit of minority policy. Issues society organisations on these is- of anti-Semitism, anti-Gypsyism sues. There is a need to broaden and and racism against Sami are dis- deepen the Government’s know­ cussed as part of this consulta- ledge and perspective and help to tion. create mutual understanding and • The Swedish Agency for Youth trust – with respect for each oth- and Civil Society annually allo- er’s roles. The dialogues must be cates funding under the Ordi- characterised by responsibility and nance (2008:62) on Government mutuality, address each other’s con- grants to activities to combat

58 A comprehensive approach to combat racism and hate crime racism and similar forms of in- issues between the Government tolerance. Grants can be given and civil society organisations. to non-profit organisations and • The Living History Forum will foundations that are not run by invite actors able to convey ex- the State or local government and periences from groups exposed are allocated to activities that to different forms of racism combat anti-Semitism, Islamo- and hostility to participate as a phobia, Afrophobia, anti-Gyp- knowledge resource as far as pos- syism and homophobia. sible, in conjunction with the im- • The Commission for Govern- plementation of new education ment Support for Faith Commu- initiatives on racism past and nities (SST) is allocating funding present. to faith communities for safety • In 2016–2020 the Swedish Agen- measures at religious premises in cy for Youth and Civil Society 2016. will increase its allocation of • The Government has also allo- funding to promote activities cated funding to the National specifically intended to combat Interfaith Council of Sweden to Afrophobia, anti-Semitism, an- expand interfaith cooperation in ti-Gypsyism, Islamophobia, rac- 2016. ism against Sami, homophobia and transphobia. Planned measures: • The Government will determine • From 2017 onwards, the Govern- how work to combat anti-Gyp- ment will invite participants to syism should continue, on the attend an annual focused discus- basis of the final report submit- sion on Afrophobia and Islamo- ted by the Commission against phobia, with the aim of facilitat- Anti-Gypsyism in June 2016. ing and improving the efficiency of information gathering and other communication on these

Ministry of Culture and Ministry of Justice 59 Strategic area: Strengthening 4 preventive measures online

Different reports show that mes- Examples of current measures: sages that express racism, similar • Up to and during 2016 the Swed- forms of hostility and extremism ish Media Council has run the and that previously were only as- No Movement cam- serted in extremist contexts are now paign aimed at preventing rac- spread on a daily basis in comment ism, sexism and similar forms of fields and in social media and thus hostility and protecting demo­ have a greater impact today than cracy against violent extremism. before. Right-wing extremist groups This initiative seeks to achieve its use various internet fora, for exam- aims by boosting media and in- ple, to describe refugees in a rac- formation literacy amongst chil- ist way and agitate against them dren and young people. by portraying them as a threat to • The Swedish Defence Research Swedish society. Agency is surveying and analys- ing violent extremist propagan- Increased access to and use of the da on the internet and via social internet makes it even more impor- media until 2018. tant to increase media and informa- tion literacy. The internet makes it Planned measures: easy to publish and change infor- • In 2016 and 2017 the Swedish mation. Social media makes it eas- Media Council will be survey- ier to share information. ing protection for children and young people on the internet re- The Government considers that garding racism, similar forms there is a need to improve protec- of hostility, hate crime and ex- tion against racism, similar forms tremism. The survey will cover of hostility and hate crime online. the measures put in place by the There should be dialogue with re­ public sector and civil society in pre­sentatives of social media pro- this area and the self-regulatory viders to make them take greater steps taken by social media pro- responsibility on these issues. viders. The Council will pass on

60 A comprehensive approach to combat racism and hate crime the results of the survey to actors affected. • In 2017 the Government will in- itiate dialogue between actors affected to discuss how racism, similar forms of hostility and hate crime can be prevented and combated, including on social media. • The Swedish Media Council will continue the No Hate Speech Movement campaign until and during 2020. • In 2017 the Government will present an action plan to prevent threats to democratic discourse.

Ministry of Culture and Ministry of Justice 61 Strategic area: A more active 5 legal system

Hate crime is unacceptable in a their willingness to report. When democratic society. Besides the a person is attacked for what he or abuse to which the individual con- she is or appears to be, this tends to cerned is exposed, such crimes can hit the person hard. lead to fear and insecurity among other people who belong to the On 1 January 2015 the 21 police au- same group. The legal system there- thorities, the National Police Board fore places great emphasis on work and the State Forensic Laboratory to tackle and combat hate crime. were merged to form a single agen- cy, the . Many hate crimes never come to The overall aim of the reform is the knowledge of the legal sys- to facilitate improved results and tem. This may be because the vic- higher quality work, partly through tim feels shame and does not want clearer leadership and governance, to admit that they were a victim. greater uniformity, greater flexi- It may also be because the victim bility and more efficient use of re- does not think they will be taken sources. seriously when contacting the legal system. For many people, hate has The new agency offers a much unfortunately become part of every- greater opportunity to quickly mo- day life and this can also lead to vic- bilise resources between differ- tims failing to come forward. ent geographical and topical areas of operation. A single agency also The Swedish Police Authority makes it easier to spread new or Surveys show that many people modified working methods and who have been the victim of hate thus improve the impact of national crime have low trust in the police strategies. The restructuring is also service and its ability to investi- expected to create better conditions gate and bring perpetrators of hate for cooperation between agencies at crime to justice, which can affect national level.

62 A comprehensive approach to combat racism and hate crime To further strengthen the Swedish • The Swedish Police Authority Police Authority’s work against hate intends to develop its crime pre- crime, the National Police Com- vention work by expanding con- missioner has launched an initia- tact and dialogue with vulnerable tive called “Fundamental rights and groups. At national level, in au- freedoms”. One aim behind the ini- tumn 2015 a consultation forum tiative is to increase the proportion was set up for representatives of of solved crimes and perpetrators groups vulnerable to hate crime. brought to justice, and to give em- Collaboration with vulnerable ployees greater awareness and un- groups also takes place at region- derstanding of the difficulties as- al level, and locally with munici­ sociated with hate crime in order palities and local clubs and so- to make it easier to identify a hate cieties, through measures such crime motive when a crime is com- as local collaborative agreements mitted, and accordingly to take a and pledges to citizens. broader perspective through every • Technological development has step of the investigation. brought about positive chang- es for freedom of expression and Examples of current measures: democratic debate. However, this • In line with the National Police progress has also led to threats Commissioner’s initiative, there and other forms of personal abuse are special hate crime groups taking on a new guise. On 1 Oc- in the three metropolitan re- tober 2015 the Swedish Police Au- gions. In addition to investiga- thority established a national IT tion, the designated groups are crime centre aimed at improving also to work with victim sup- its capacity to secure evidence re- port, training, collaboration and garding IT-related crime. other measures to create reassur- • The Police Authority carries ance and trust. There must be a out internal and external train- capacity to resolve these tasks in ing initiatives with the aim of other regions too. raising the level of expertise in

Ministry of Culture and Ministry of Justice 63 hate crime and other crimes that threaten fundamental rights and freedoms. Hate crime is Planned measures: unacceptable in a Within the remit of ongoing work, the Swedish Police Authority is to democratic society. continue to work to: Besides being • constantly take steps to build trust and reassurance, abusive towards • ensure that there are forums for internal and external exchanges the individual of experience, • be able to follow up reported hate concerned, it can crime and compile national sta- lead to fear and tus reports, • ensure cooperation with the insecurity among agencies concerned. others in the same The Government will be careful- group. ly monitoring developments in this area. In line with its mandate under its appropriation directions for 2016, the Swedish Police Authority must set out the measures that have been taken as a result of the mandate to develop initiatives to combat hate crime. The reporting requirement includes setting out the effects the measures are judged to have led to or to lead to. Furthermore, the re-

64 A comprehensive approach to combat racism and hate crime port is to contain a description of tem. The result indicates difficul- how the Authority intends to con- ties compiling statistics on hate tinue developing initiatives to com- crime cases. According to the re- bat hate crime. The report is to be view, a quarter of the cases recorded submitted by 1 2017 at the as hate crime are not hate crime in latest. the sense of criminal law. Accord- ing to the Swedish Prosecution Au- The Swedish Prosecution thority, there are objective grounds Authority to determine that these cases are not On 1 October 2014 the Swedish hate crime or there is a lack of infor- Prosecution Authority was reorgan- mation to support there being a dis- ised with the establishment of seven criminatory motive behind the acts geographical prosecution areas and reported. Furthermore, the review one national prosecution depart- shows that the most commonly re- ment. One of the aims of the reor- ported hate crimes are defamation, ganisation was to create structures i.e. defamation, gross defamation equivalent to those in the Swedish or insulting behaviour. Respectful Police Authority’s new organisation treatment in which the victim of in order to improve the efficiency crime is offered legal and other sup- of investigation and prosecution of port, as well as the initial interview crime. with the plaintiff being more pre- cise and of higher quality, are cited In 2015 the Swedish Prosecution as particularly important factors in Authority reviewed the prosecu- improving the prosecution of hate tors’ processing of hate crime. The crime. review covers 300 cases registered as hate crime in the Swedish Na- Examples of current measures: tional Council for Crime Preven- • Hate crime is a priority area for tion’s statistics for 2013 and which the Swedish Prosecution Author- had been processed by prosecutors ity and within the Authority, the in the Cåbra case registration sys- development centre in Malmö

Ministry of Culture and Ministry of Justice 65 bears special responsibility for is to continue to work to: developing methods, monitor- • produce a consistent procedure ing and training in hate crime. for processing hate crime, • The Swedish Prosecution Au- • disseminate this information and thority and the Swedish Police put it into practice at all public Authority work together partly prosecution offices. by involving the other authori- ty in ongoing work to develop Hate crime statistics methods and various training The Government sees it as vital that initiatives. the information produced on hate • The regulations of the Swedish crime is usable and forms a good Prosecution Authority state that basis for carrying out the relevant prosecutors must take over lead- initiatives. Statistics on police re- ing the preliminary investigation ports with a hate crime motive have into reported hate crime once clear shortcomings, however, while there are reasonable grounds to also demanding a large amount of suspect someone of the crime. resources to produce. The statistics • Hate crime is addressed separate- can give indications of how hate ly in the basic and further train- crime is noted in police reports and ing of prosecutors. information on the events report- • There is at least one designated ed, but they do not provide a com- prosecutor in each public prose- plete or entirely accurate picture of cution office specialised in deal- the hate crimes reported to the po- ing with cases relating to hate lice. Nor is it possible to draw any crime. These prosecutors meet conclusions from the statistics on regularly and exchange experi- the extent of hate crime in socie- ences and discuss legal issues. ty, because not all hate crimes are reported and willingness to report Planned measures: can vary over time and between dif- Within the remit of ongoing work, ferent groups. the Swedish Prosecution Authority

66 A comprehensive approach to combat racism and hate crime The Government considers that the statistics and opportunities to opportunities to obtain better and develop them. The Government deeper knowledge of hate crime will then analyse and make deci- should be analysed. The starting sions on any changes to the hate point is that statistics on reported crime statistics with the aim of hate crime should continue to be increasing knowledge about hate produced. However, the Govern- crime. ment considers that there is a need to review whether some of the re- Consistent practical application sources currently being used to pro- of the term hate crime duce these statistics could be used In early 2015, the then National Po- in other ways to gain more in-depth lice Board, the Swedish Prosecution knowledge of the extent and nature Service and the Swedish Nation- of hate crime, the needs of vulnera- al Council for Crime Prevention ble individuals and groups, and the reported the results of their man- handling of hate crime within the date to work towards the consist- legal system. ent practical application of the term hate crime within and between the Examples of current measures: agencies. The report found that a • The Swedish National Council more consistent application of the for Crime Prevention produces term hate crime would provide bet- statistics on police reports with ter opportunities to identify, sur- an identified hate crime motive vey and prosecute hate crime. The and self-reported exposure to agencies also state that consistent hate crime. application would link hate crime statistics more firmly to operations Planned measures: and mean that they better reflected • The Swedish National Coun- the understanding of the term hate cil for Crime Prevention will ar- crime among the crime investiga- range a seminar on hate crime tion agencies.

Ministry of Culture and Ministry of Justice 67 In the report, the Swedish Nation- has also led to threats and other al Council for Crime Prevention forms of personal abuse taking on highlights the fact that the common a new guise. In order to better com- definition would remain open to in- bat threats and serious abuse, both terpretation even in the future and on the internet and otherwise, the more extensive work is needed to criminal law framework needs to be attain consistent reporting of hate adapted to the form that these prob- crime. The Government also sees a lems take today. In its report (SOU need for the agencies to continue to 2016:7), the inquiry into modern work towards a consistent practical and strong protection provided by application of the term hate crime criminal law for individuals’ per- between the agencies. sonal privacy proposes that the pro- tection provided by criminal law for Planned measures: personal privacy should be strength- • The Police Authority, the Swed- ened and modernised in several re- ish Prosecution Service and the spects. The inquiry proposes that Swedish National Council for the penal provisions on unlawful Crime Prevention will continue threat and molestation be expand- to work towards the consistent ed and that the provisions on defa- practical application of the term mation and insulting behaviour be hate crime, within and between modernised. The inquiry also pro- the agencies. poses that criminal liability under the Act on Responsibility for Elec- Legislative work tronic Bulletin Boards (1998:112) Modern and strong protection for (the BBS Act) be expanded to also personal privacy in criminal law cover inter alia unlawful threats Technological development and the (i.e. that there should be an obli- growth of the internet have brought gation to remove posts whose con- about positive changes for free- tent clearly constitutes an unlawful dom of expression and democrat- threat). It is true that the proposals ic debate. However, this progress are not particularly focused on hate

68 A comprehensive approach to combat racism and hate crime crime. Nevertheless, the crimes cov- tation against a national or ethnic ered by the inquiry’s proposals fre- group (The corresponding amend- quently have racist and homophobic ment is proposed in the Freedom of motives. Reinforcing the protection the Press Act’s catalogue of offenc- under criminal law for personal pri- es.), unlawful discrimination and vacy in general therefore provides prosecution for insulting behaviour. better opportunities to also combat Furthermore, the inquiry proposes hate crime. that transgender persons are to be expressly covered by the rule of in- Current measures: creasing the severity of the penalty • The report has been circulated in Chapter 29, Section 2, paragraph for consultation. The Govern- 7 of the Penal Code. The provision ment is working to produce the would thus contain, as an aggravat- legislative proposals needed to ing circumstance, the grounds that safeguard powerful and well-bal- a motive for the crime was to ag- anced protection of personal pri- grieve a person or a group of people vacy. by reason of their gender identity or gender expression. The Inquiry The inquiry into legal protection for also proposes that the word “race” transgender persons under crimi- be replaced in legislation by other nal law, etc. expressions and that the expression In its report (SOU 2015:103), the in- “transgender identity and expres- quiry on legal protection for trans- sion” be replaced by “gender iden- gender persons under criminal law, tity and gender expression”. etc. proposes that protection for the group transgender persons and in- Planned measures: dividual transgender persons is to • The Government plans to sub- be expanded. The inquiry propos- mit a bill to the Riksdag in 2017. es that the grounds gender iden- tity and gender expression should be added to the provisions on agi-

Ministry of Culture and Ministry of Justice 69

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