Resolution 1344 (2003)1
Threat posed to
democracy by extremist parties and movements in Europe
1. The
Parliamentary Assembly remains concerned at the resurgence of extremist
movements and parties in Europe, and considers that no member state is immune
to the intrinsic threats that extremism poses to democracy.
2. The tendency today is for extremism to
spread across the European continent. In western Europe extremist parties and
movements have achieved significant electoral scores. In other member states
of the Council of Europe, political extremism has also developed to a
noticeable extent. This current trend should encourage the Council of Europe
member states to be more vigilant than ever, and to assess the threats posed
by extremism to the fundamental values that the Council of Europe aims to
uphold.
3. Extremism, whatever its nature, is a form
of political activity that overtly or covertly rejects the principles of
parliamentary democracy, and very often bases its ideology and its political
practices and conduct on intolerance, exclusion, xenophobia, anti-Semitism and
ultra-nationalism.
4. The Assembly notes that some extremist
movements seek justification for their actions in religion. The danger of this
current trend is twofold: on the one hand it fosters intolerance, religious
fanaticism and fundamentalism, and on the other it leads to the isolation of
entire religious communities for the sake of individuals who abuse the
universal values of religion.
5. Extremism relies on social discontent to
propose simplistic and stereotyped solutions in response to the anxieties and
uncertainties felt by certain social groups in the face of the changes
affecting our societies. It shifts responsibility for these difficulties to
the inability of representative democracy to meet the challenges of today’s
world, and the incapacity of elected representatives and institutions to
address citizens’ expectations, or it designates a particular section of the
population as responsible or as a potential threat.
6. Extremist parties and movements are often
oligarchies with a strong hierarchical structure, which do not apply
democratic principles internally. The unity of the group is reinforced by its
exclusive ideology, its populist and simplistic discourse and the predominance
of its leader.
7. Extremism is a danger for all democratic
states because the fanaticism it involves can serve as a pretext for the use
and justification of violence. Even if it does not directly advocate violence,
it generates a climate conducive to the escalation of violence. It is both a
direct threat because it jeopardises the democratic constitutional order and
freedoms, and an indirect threat because it can distort political life.
Traditional political parties may be tempted to adopt the stance and the
demagogic discourse specific to extremist parties in order to counter their
increasing electoral popularity.
8. The Assembly is aware that the struggle
against extremism presents democracies with a dilemma because they must on the
one hand guarantee freedom of expression, assembly and association, allowing
all political groups to exist and be politically represented, and on the other
hand must defend themselves, and introduce safeguards against the activity of
some extremist groups which flout democratic principles and human rights.
9. Referring to
Recommendation 1438
(2000) on the threat posed to
democracy by extremist parties and movements in Europe and
Resolution 1308 (2002)
on restrictions on political parties in Council of Europe member states, the
Assembly remains convinced that states must avoid allowing extremism to be
perceived as normal and must counteract its effects by applying – or adopting
if they do not exist – appropriate political and administrative measures in
order to preserve the rule of law based on respect for democratic principles
and human rights. In this connection the Assembly notes that the historical
development of the various countries and their differing criteria for
tolerance result in different countries adopting different penalties for
similar acts.
10. However,
the Assembly considers that these restrictive measures can only be used to
tackle the roots of extremism if they are supported by public opinion and are
accompanied by additional measures, notably regarding political ethics or in
the fields of education or information.
11. The Assembly notes that civil society
constitutes an essential link between society and government: it is often a
key political ally in promoting human rights and democracy. States must
therefore consider the organisations of civil society as partners and help
them to become established by supporting their activities.
12. The Assembly considers that the rules and
principles set out in the European Convention on Human Rights, the United
Nations International Convention on the Elimination of All Forms of Racial
Discrimination and the general policy recommendations of the European
Commission against Racism and Intolerance (ECRI), particularly Recommendation
No. 7 on national legislation to combat racism and racial discrimination
adopted in December 2002, are basic texts which should guide the member states
in their strategy for fighting extremism.
13. The Assembly therefore invites the
governments of the Council of Europe member states:
i. to provide in their legislation that the
exercise of freedom of expression, assembly and association can be limited
for the purpose of fighting extremism. However, any such measures must
comply with the requirements of the European Convention on Human Rights;
ii. to apply or introduce if they do not
exist:
a.
effective penalties where cases of proven damage caused by an extremist
political party or one of its members are established;
b.
proportionate and dissuasive penalties against public incitement to
violence, racial discrimination and intolerance;
c.
the suspension or withdrawal of public funding for organisations promoting
extremism;
d.
the dissolution of extremist parties and movements, which should always be
regarded as an exceptional measure. It is justified in the case of a
threat to a country’s constitutional order, and should always be in
conformity with the country’s constitutional and legislative provisions;
iii. to monitor, and if necessary to
prevent, the reconstitution of dissolved parties or movements under another
form or name;
iv. to encourage political parties to
devise a new code of ethics, basing their programmes and activities on
respect for fundamental rights and freedoms, excluding political alliances
with extremist parties, reinforcing the rules on the transparency of
political party finances if necessary, and proposing plausible solutions to
the social and economic problems which cause public concern;
v. to develop school curricula for
education for democratic citizenship based on citizens’ rights and duties,
social tolerance and respect for difference. Education and training are the
most fundamental and lasting methods of guarding against the discriminatory
ideology of extremism;
vi. to encourage awareness-raising
campaigns to make citizens aware of the harmful effects of political
extremism on democracy;
vii. to encourage civil society, which
plays a key role in the process of integration and social cohesion, to
overcome all forms of extremism and intolerance;
viii. to establish at the same time
national legislative and administrative measures and closer international
co-operation in order to discourage any propagation of extremist ideologies,
notably through new information technologies;
ix. to support the work of ECRI, whose task
is to combat racism, xenophobia, anti-Semitism and intolerance throughout
greater Europe, and to ensure that the member states take practical action
on its recommendations.
1.
Assembly debate on 29 September 2003 (26th Sitting) (see
Doc.
9890,
report of the Political Affairs Committee, rapporteur: Ms Feric-Vac).
Text adopted by the Assembly on 29 September 2003 (26th Sitting).
