Public chamber of RF, Commission on interethnic relations and freedom of conscience

Moscow, April 27, 2010 

Ethnic and religious intolerance, extremism and violence generated by them are a threat for peaceful life and development of society; they undermine the principles of democracy and lead to breaches of rights and freedoms of a human.

Russian national-radicals are turning into terroristic force pursuing political purposes before our eyes. This is already not a simple demonstration of nationalistic symbols and ideology and not just attacks on migrants. This is cruel terror, demonstrative acts of threatening, blasting of markets, cafes, migrants’ hostels, churches, mosques and synagogues. This is mass purchase of arms and fabrication of explosive devices. This is publication of lists of “enemies” on the Internet. This is murders of judges, lawyers, human rights activists, journalists and public expressions of devotion to the ideas of fascism on Hitler’s birthday. This is endless statements about necessity to put an end to authority called “anti-Russian” by radicals.

The single day of vote on March 14, 2010 demonstrated that “black” PR-technologies are in fashion in Russia again when slogans of xenophobia and migrant-phobia are cynically used, when attempts are made to discredit, humiliate the opponents basing upon their ethnic belonging. Representatives of some parliamentary parties started using xenophobic slogans openly too. In their turn, national-radicals aspire to replenish the ranks of these parties so that to use the tools of their influence with their own destructive purposes later.

New terrorist and extremist threats in the North Caucasus, in Moscow show the urgency of taking measures for combat against this evil that is growing more and more. Terrorist acts in Moscow underground caused a new splash of Caucasian-phobia. But the lessons of Beslan, Dubrovka, terrorist acts in Moscow seem to teach nothing either to the authority or to the society: any distinct complex program for development of the Caucasus, prevention of terrorism does not exist yet.

Destructive processes are just aggravated by corruption on all the levels, by slow reforming of judicial power and militia, by low extent of social protection of people.

It should be noted that the work of law-enforcement bodies activated recently. According to official data, 42 criminal proceedings instituted under the clauses connected with extremism are in the process of the Investigatory committee under the Office of public prosecutor of Russian Federation (including 25 cases - in 2009). Totally 247 accused were taken to criminal account including 79 persons under age (including 159 accused and 61 persons under age among them – in 2009).

But these measures do not lead to a necessary result as the Ministry of education and science, Ministry of culture, Ministry of sports, tourism and youth policy do not so much for prevention of extremism. Instead of this accusations of extremism are brought against of those who really combat against it – authors of anti-fascist film about skinheads “Russia 88”, human rights activists and journalists criticizing regional authorities and writing about the problems of extremism. Such a situation can’t be called but distortion of the essence of Russian legislation.

The society in general treats the new dangerous processes and tendencies passively. The role of human rights and anti-fascist NCOs is still low: they do not affect the citizens and authority properly with the purpose of efficient public counteraction to ideology of hatred, rejection of radicalism.

Meanwhile consent and cooperation between the people belonging to various ethnic, social and religious groups is the greatest value, condition for stable existence of the country, index of its viability and progressive development in such a multiethnic country as Russia. Seeing the real threats for the present and the future of our country and having discussed them comprehensively, participants of the Forum formulated the suggestions aimed at improving the life of the society, decreasing the level of intolerance and xenophobia and creating a social barrier for development of extremism. 

 1. Development of interethnic dialogue and cooperation, improvement of legislative base 

Multiethnic character is the heritage of Russia. People of various cultures and traditions are the wealth of the country, its creative potential. Experience of personal contacts between representatives of various nationalities has considerable positive influence upon the level of interethnic and inter-cultural tolerance. Hundreds ethnic-cultural public associations exist today, and not just support of development of ethnic traditions of any people should become their common task but also their joint activity, common arrangements. Active non-commercial associations should be supported and new ones should be created exercising interethnic and inter-cultural dialogue.

The State Duma of the Federal Assembly of Russian Federation should improve the Federal law “On ethnic-cultural autonomy” dated June 17, 1996 No 74-FZ by inclusion of provisions that would guarantee the openness of ethnic-cultural autonomies and their active participation in civil life of the country, in making decisions on the problems of development of peoples of Russia. It is necessary to improve anti-extremist legislation, achieve the precision of formulas, especially for determination of the notion “extremism” so that the law-enforcers would not admit its double interpretation and would not apply it against opposition politicians, human rights activists and journalists criticizing corruptionists and officials that abuse their authority. To reinforce administrative liability for propaganda of Nazi symbols and ideology. To increase the statute of limitation for examination of crimes motivated by ethnic and religious hatred from 2 to 6 years. Not to admit withdrawal of cases connected with crimes of extremist and aggressive xenophobic orientation from jurisdiction of jury trial. To develop distinct criteria for execution of expert examination of radical materials, for selection of experts.

The Government of Russian Federation shouldе urgently develop the Concept of state ethnic policy of Russian Federation including the provisions directed at counteraction to extremism and xenophobia in our country into it.

The President of Russian Federation, the Chairman of Government of Russian Federation, the heads of subjects of Russian Federation and municipal units should propagate the ideas of interethnic unity more actively in our country, provide tough estimate of incidents motivated by racism, extremism, and condemn the ideology of hatred. To support NCOs involved into anti-fascist activity and programs connected with improvement of migratory processes and helping the migrants in their social adaptation.

The Public chambers in the subjects of Russian Federation, regional Commissioners on human rights should render assistance in creation of a network of anti-fascist NCOs for monitoring of intolerance manifestations, public actions, for conduction of educational and enlightenment activities.

The Public chamber of Russian Federation should cooperate permanently with international human rights anti-fascist associations, study the successful international experience of law-enforcers, educational system, mass media in prevention of xenophobia and extremism. 

2. Improvement of migratory policy 

With the purpose of minimization of risks connected with staying of migrants in Russia, development of efficient mechanisms of adaptation and integration of migrants into our society is necessary.

The Government of Russian Federation should render support to non-commercial organizations and ethno-cultural associations that familiarize the migrants with laws, language, culture, traditions and customs of Russia and create favorable conditions for soonest and painless inclusion of migrants into everyday social life of the regions. It’s impossible to admit the creation of self-contained ethno-cultural enclaves.

It is necessary to develop and adopt the Concept of state migratory policy of Russian Federation that would be a stimulus for further improvement of legislation in the field of migration. It’s necessary to revert to the practice of development and implementation of the Federal target migratory program the key elements of which should be the implementation of balanced policy of attraction of foreign workers taking into account the needs of Russian economy and regional labor markets, adaptation and integration of foreign citizens into Russian society, counteraction to xenophobia, ethnic and religious hatred and aggressive nationalism.

Operators of state support of NCOs should make the subject of migration one of priority ones during implementation of program of state support for non-commercial organizations (presidential grants). 

     3. Social-economic problems and regional specificity 

Interethnic and inter-religious consent and civil peace depend on social-economic wellbeing of the country population but it’s impossible to overcome the ethnic intolerance counting just on solution of economic problems and improvement of social infrastructure of any region. Rising of standard and quality of life, solution of material problems and increase of number of medical and educational institutions would not cause automatic decrease of interethnic intolerance. It is important that social differences should not correlate with ethnic communities and should not be of discriminatory character.

The heads of subjects of Russian Federation should create conditions for increase of spatial and social mobility of population, especially in mono-ethnic regions, and this would enable decrease of tension on problem territories, improve cooperation of peoples and cultures and serve the expansion of interethnic contacts in the country. It is necessary to pursue well thought-out youth policy, create conditions for education and professional growth of youth regardless of place of residence, social, ethnic, and religious belonging.

It is necessary to develop and implement, taking into account the regional features, the strategy of combat against dissemination of interethnic intolerance. Special attention should be paid to the regions where conditions for appearing of interethnic tension and conflicts exist. Arrangement of monitoring by force of both state and non-commercial organizations is necessary for this.

Law-enforcement bodies, courts should not, in spite of threats on the part of radicals and actions of revenge and intimidation, yield to provocations and should suppress toughly the activity of extremist groups considering that such crimes are a threat not just for ethnic minorities but also for integrity of the whole country, that they are able to provoke interethnic conflicts, separatism etc. 

4. Sphere of education and upbringing 

Educational system is of primary significance for establishment of civil consent in the society, for rejection of extremism and for efficient counteraction to extremism.

The Ministry of education and science of Russian Federation should oblige general educational institutions (schools, gymnasiums, lyceums), colleges of Russia to carry on systematic work for upbringing of the students who must know: the Russian society is composed of citizens of various world outlooks, religions, ethnic and cultural traditions. It is necessary to introduce the concept of tolerance into the school and college educational systems, expand the knowledge of schoolchildren and students about the country and its various peoples, about cultural diversity of Russia. It is necessary to improve the educational standards of secondary and higher school including the courses for upbringing of culture of interethnic relations into them, cultivate rejection of ideology of hostility, racism and neo-Nazism in the students.

General educational institutions, colleges of the country should suppress the activity and ban the symbols of extremist groups and organizations, respond operatively to all cases of manifestations of negative stereotypes, interethnic dissension, humiliation of honor and dignity of representatives of any nationalities and racial groups among the students. 

5. Role of mass media  

Mass media are an influential civil institution capable to support steady rejection of slogans of extremism and xenophobia in the society. But this institution often affects the state of interethnic relations negatively too. The publications on ethnic and migratory subjects are often of biased character and force the alarm in the society without sufficient grounds for this paying principal attention to the problems of criminality among migrants and ethnic minorities. As a result false understanding of situation in the country by people is created and idea of solidarity of people in Russia is undermined. Journalist community should achieve securing and observance of corporate norms and regulations for interpretation of interethnic relations in professional journalist environment and reject the language of hostility.

Heads and owners of mass media should achieve agreement in the issue of non-admission of persons propagating racial, ethnic and religious hostility and calling to violence to TV, radio air and to printed periodicals as well as of ban for broadcasting of their direct statements and appeals – at the same time not breaking the freedom of speech, freedom of expression of ideas and views.

It is expedient for the Federal agency on press and mass communications to use the system of incentive grants promoting fuller and more objective reflection of diverse ethno-cultural life of Russia, and development of interethnic and inter-religious dialogue.

Federal and regional TV channels should begin mass campaign for propaganda of ideas of tolerance. 

6. Consolidation of expert community 

The key role in counteraction to extremism and xenophobia is played by experts who provide their conclusions for investigatory bodies and for court during examination of cases under corresponding clauses. Unfortunately, as the practice shows, level of proficiency of experts remains quite low: for example, expert conclusions provided concerning similar cases may be diametrically opposite by their contents and the courts often make illegitimate decisions due to this.

The Office of general public prosecutor of Russian Federation should arrange the training of specialists for such activity, introduce the procedures for confirmation of qualification of participants of investigatory actions, and support the creation of community of experts, their “self-regulated” organization with the purpose of securing high quality of legal proceedings.

Law-enforcement bodies should arrange the guarding of experts who participate in legal procedures connected with crimes motivated by aggressive xenophobia. 

7. About the Program of counteraction to intolerance and extremism 

The Government of Russian Federation should develop the Program of counteraction to intolerance and extremism in Russian society. The Program should be of practical character and assume broad participation of civil society in its implementation. The Public chamber of Russian Federation could become a Coordinator and one of co-executors of the Program.