Legal Instruments to Combat Racism and Xenophobia
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Commission of the European Communities Legal instruments to combat racism and xenophobia Comparative assessment of the legal instruments implemented in the various Member States to combat all forms of discrimination, racism and xenophobia and incitement to hatred and raciql violence December 1992 Directorate General Employment, Industrial Relations and Social Affairs 200, rue de Ia Loi, B - 1 049 Brussels This document has been prepared for use within the Commission. It does not necessarily represent the Commission's official position. Cataloguing data can be found at the end of this publication. Luxembourg: Office for Official Publications of the European Communities, 1993 ISBN 92-826-5423-0 © ECSC-EEC-EAEC, Brussels • Luxembourg, 1993 Reproduction is authorized, except for commercial purposes, provided the source is acknowledged. Printed in Belgium Preface The resolution of the Council and of the representatives of the Governments of the Member States, meeting in the Council of 29 May 1990 on the fight against racism and xenophobia, noted that the Commission was to make a comparative assessment of the legal instruments implemented in the various Member States to combat all forms of discrimination, racism and xenophobia and incitement to hatred and racial violence1 and that it would help to improve dissemination of information on these legal instruments. In order to implement this action, the Directorate General f.or Employment, Industrial Relations and Social Affairs invited tenders in March 1991 2 whereby the Commission tried to assure that organizations competent to do the research would participate. Twelve national reports have been provided by the rapporteurs3 chosen among the bidders. On the basis of these national reports, the International Institute of Human Rights in Strasbourg wrote up the present report. The fight against racism and xenophobia is to be viewed in the framework of the protection of fundamental rights4, confirmed in the preamble to the Single European Act5 reminding the Member States "to promote democracy on the basis of the fundamental rights recognized in the constitutions and Jaws of the Member States, in the Convention for the Protection of Human Rights and Fundamental Freedoms and the European Social Charter, notably freedom, equality and social justice" and recalling the responsibility incumbent upon Europe "in particular to display the principles of democracy and compliance with the law and with human rights to which they are attached". 1 OJ No C 157, 27.06.1990. 2 OJ No C 84, 28.03.1991. 3 See Annex I. 4 See especially the Joint Declaration on the Protection of Fundamental Rights in the European Community. OJ No C 103, 07.04.1977. 5 OJNoL169,29.06.1987. CONTENTS I. Introduction ......................................................................................................... 5 II. Demographic and Socioeconomic Status of Minorities in Europe ................................. 6 A. Immigration to Community Member States ................................................... 6 B. Current Demographics and the Problem of Racism in EC Member States .......................................................................................................... 7 C. Social and Economic Situation of Minorities .................................................. 10 Ill. General Policies of EC Member States on Legal Measures to Combat Racism, Discrimination and Xenophobia ....................................................................... 12 A. Issues of definition and scope of problem ..................................................... 12 B. Summary of Legal Instruments and Policies to Combat Racism, Racial Discrimination and Xenophobia ............................................................... 16 1. Summary of legal instruments ...................................................................... 16 2. General policies toward equality and discrimination ......................................... 16 IV. Constitutional Provisions to Combat Racism, Racial Discrimination and Xenophobia ............................................................................................................. 1 9 A. Statements of Equality .............................................................................. 19 B. Equality and Non-Discrimination Provisions ................................................... 20 C. Bans on Racist Expressions and Organizations .............................................. 22 D. Jurisprudence Interpreting and Applying Constitutional Norms ........................ 22 V. International Legal Norms Applicable in EC Member States to Combat Racism, Racial Discrimination and Xenophobia .............................................................. 26 A. Treaty Provisions Concerning Racism, Racial Discrimination and Xenophobia .................................................................................................. 26 B. Jurisprudence of International Human Rights Organs ...................................... 30 C. Applicability and Enforcement of International Norms in National Law ............................................................................................................. 31 D. Norms of Customary International Law ........................................................ 34 VI. Legislative and Regulatory Provisions .................................................................... 35 A. General Laws ........................................................................................... 35 B. Criminal Laws ........................................................................................... 37 C. Measures Concerning Specific Discriminatory Conduct ................................... 39 1 . Housing ................................................................................................... 39 2. Employment .............................................................................................. 40 3. Education ................................................................................................. 41 4. Liberty of Religion ...................................................................................... 43 5. Commercial Activities, including provision of goods and services and access to facilities ......................................................................................... 43 6. Participation in elections and government at all levels ..................................... 44 7. Health ..................................................................................................... 44 8. Administration of Justice ........................................................................... 45 9. Marriage and family, including adoption ........................................................ 45 3 VII. Indirect or Institutional Racism ........................................................................... 4 7 VIII. The Scope of Application of Legal Measures ......................................................... 48 A. Duties of Public Officials and Constitutional or Legislative Immunities ............... 48 B. Application of Legal Measures to Private Non-Commercial Activities ................. 50 C. Incitement to Racial Hatred and Issues of Free Speech .................................... 51 1. Expression and non-press publications or organizations .................................. 52 2. Advertising .............................................................................................. 53 3. Press laws and codes of conduct ................................................................ 53 4. Mailing or posting ..................................................................................... 55 IX. Penalties and Remedies ....................................................................................... 56 A. Criminal Sanctions .................................................................................... 56 1 . The Range of Penalties .............................................................................. 56 2. Application of criminal penalties .................................................................. 58 B. Civil Remedies ........................................................................................... 61 1 . Civil actions .............................................................................................. 61 2. Procedural and Substantive Requirements ................- ..................................... 64 3. Potential remedies ..................................................................................... 65 C. Administrative Agencies and Ombudsmen .................................................... 66 D. Assistance to Victims to Bring Claims .......................................................... 69 1 . Financial assistance through legal aid ........................................................... 69 2. Assistance and representation by non-governmental associations and organizations combatting racism ................................................................ 70 X. Affirmative Measures and Programs to Combat and Prevent Discrimination, Racism or Xenophobia .............................................................................................. 72 Conclusions ............................................................................................................. 74 Tables .................................................................................................................... 77 International Conventions