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              How Anti-Terror Laws Threaten Free Speech
Sunday, February 3rd, 2008 Restrictions of all sorts have multiplied in the heightened security environment of the last six-and-a-half years, so it should be no surprise that, around the world, legal restrictions on speech have tightened. Since 2001, there has been a clear trend toward prohibiting speech perceived as supporting terrorism, and toward barring the dissemination of materials–including books, videos, and other forms of written and graphic communication–that are believed to be of use for terrorist activity. International protections on free expression in no way restrict governments from criminally prosecuting direct incitement to terrorism–speech that directly encourages the commission of a crime, is intended to result in criminal action, and is likely to result in criminal action–whether or not criminal action does, in fact, result. (In the United States, where the Constitution imposes stricter protections for expression than found elsewhere, the courts have required that the prohibited incitement present a risk of “imminent” criminal action.) Yet the legal trend globally is not only to criminalize direct incitement to terrorist activity, but to criminalize indirect incitement–to prohibit speech perceived as justifying, defending, or “glorifying” terrorism. This, from the standpoint of free expression, is problematic. The British government has been a leader in this effort. Not only has it passed new domestic laws to regulate speech, it has pressed international institutions to take up the issue. In September 2005, the U.N. Security Council adopted a UK-sponsored resolution that purported to repudiate “attempts at the justification or glorification (apologie) of terrorist acts that may incite further terrorist acts.” Although the resolution used the term incitement, rather than indirect incitement, its references to justification and glorification suggested a broad understanding of the term. Earlier that year, the Council of Europe, a European human rights body, adopted a Convention on the Prevention of Terrorism with similarly expansive language. The treaty requires states to criminalize “public provocation” of terrorism, a crime that could include indirect incitement. The convention defines public provocation as the public dissemination of a message “with the intent to incite the commission of a terrorist offence, where such conduct, whether or not directly advocating terrorist offences, causes a danger that one or more such offences may be committed.” Note the clear erosion of the incitement standard: There’s no need for the message to directly encourage terrorism, and rather than having to be “likely” to result in criminal action, it’s enough that the message may “cause a danger” of such action. A Global Survey Let’s review a few examples from different countries to get a better sense of what kinds of statements these laws tend to cover:
What these laws generally have in common is broad language, which may in some instances cover legitimate political speech, and which gives prosecutors enormous discretion in deciding when and if to bring a case. Possession of a Map Without an Excuse In some countries, moreover, not only is it illegal to express views deemed to support terrorism, it is illegal to possess materials that support terrorism. Again, the UK has taken the lead in this area, both in passing legislation to restrict the possession and dissemination of such materials, and in prosecuting alleged offenders.
Preemptive Action against Terrorism The reasoning behind such laws is understandable. Governments want to stop terrorism before it occurs; indeed, they would prefer to deal with the problem before the potential terrorist gets anywhere near the stage of actually planning violent acts. Some proportion of the people who communicate support for terrorism, or who read terrorist publications, may one day be moved to action. Still, a spate of recent prosecutions in the UK does little to instill confidence in these laws. Defendants have included a couple of 17-year-olds, and a young woman known (for her poems) as the “lyrical terrorist.” Are such people really a threat? It’s hard to tell; the problem with preemptive action is that it’s based on prediction. And while some number of adolescents may go from downloading Al Qaeda videos to actively supporting terrorism, the gap between the two activities is large. By wasting scarce legal and prosecutorial resources going after speech, rather than action, governments may be doing more harm than good. The defendants in such cases no doubt see them as political and religious persecution, and their families, neighbors and larger communities may agree. Joanne Mariner is a human rights attorney based in New York. Have Your Say: How Anti-Terror Laws Threaten Free Speech Please read our posting guidelines before posting. Alternatively you can discuss this report here. Related News
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