1
Aide Memoire: Progressing proposals to amend the incitement
laws in the Human Rights Act 1993
Minister of Justice, Hon Kris Faafoi
3 February 2022
1982
Purpose
1.
This note briefs you on progressing changes to the incitement laws as part of a wider review
ACT
of the Human Rights Act 1993 (HRA).
Key messages
•
In 2021 the Government publicly consulted on its in-principle proposals to amend the
laws protecting against the incitement of hatred and discrimination (‘hate speech laws’).
•
Some of the feedback received highlighted that the incitement laws are only one of
several areas in the HRA requiring a review.
•
For example, we heard that there were wider human rights issues, especially around
racism and discrimination, that changes to the incitement laws would not address.
•
Therefore, progressing changes to the incitement laws would fit well into a wider review
of the HRA.
INFORMATION
•
We recommend significant engagement so that the focus of the review, and any options
considered, could be informed by people’s experiences. This would mean that any
legislative changes would not be until the next Parliamentary term.
The Government consulted on its in-principle proposals to amend the incitement laws
2.
In March 2019, the then Minister of Justice announced that the HRA would be reviewed,
with an expedited review of the legal protections against inciting speech.
3.
In November 2020, you agreed that officials scope a targeted review of the HRA, including
the statutory functions, powers and operation of the Human Rights Commission (the
OFFICIAL
Commission). You also agreed to progress the incitement, gender identity and conversion
practices work.
4.
In 2021 the Government publicly consulted on its in-principle proposals, agreed in
December 2020, to amend the incitement laws and the prohibited grounds of discrimination
THE
(gender/sex). The proposals were based on the
Royal Commission of Inquiry into the
terrorist attack on Christchurch masjidain on 15 March 2019 (the Royal Commission) report
and our policy work.
Issues with the HRA are broader than the incitement laws
5.
We heard during this consultation that changes to hate speech laws would not address
broader human rights issues relating to racism and discrimination. Other feedback related
UNDER
to:
•
the prohibited grounds of discrimination not capturing appropriately those who need to
be protected (for example regarding disability, gender, sexual orientation, religion or
political opinion),
•
the adequacy of complaints processes and remedies under the HRA,
•
lack of alignment with other frameworks regulating speech, such as the Harmful Digital
Communications Act 2015 or the censorship legislation, and
Approved by: Kathy Brightwell, General Manager, Civil and Constitutional
RELEASED
• concerns that our human rights framework does not reflect te Tiriti o Waitangi.
6.
We know that some parts of the HRA need to be updated and strengthened. For example, 1982
• The structure and functions of the Commission remain problems. The 2018 Shaw
Report identified issues with the structure of the Commission and international human
rights bodies have raised questions about limits on its jurisdiction – particularly in
immigration matters – and its level of independence.
ACT
• Not all human rights are equally and fully protected in New Zealand legislation. For
example, economic, social and cultural rights (such as the rights to health, housing and
education) are not included in the New Zealand Bill of Rights Act 1990 or similar
legislation.
• Some exemptions (which permit discrimination that would otherwise be unlawful) may
no longer reflect current social values.
Changes to the incitement laws would fit well into a wider review
7.
Based on the consultation feedback we consider that it would be worthwhile including
changes to the incitement laws in a wider review of the HRA. Work relating to hate crime,
also recommended by the Royal Commission, could also be progressed in the context of
this review. This would be likely to have impacts on the potential timing of hate crime work,
INFORMATION
as indicated in our recent briefing to you, and the nature of any engagement on hate crime.
8.
As outlined above, some of the issues identified, but out of scope of the 2021 consultation,
are closely linked with the laws against incitement of hatred and discrimination. For
example, the remedies and complaints processes under the HRA are relevant to the
strength of protections against incitement. Also, the incitement provisions refer to prohibited
grounds of discrimination, which would benefit from a review.
We wil provide advice on options for scoping, sequencing and engagement approaches
9.
We consider a review should start with community engagement to identify what concerns
OFFICIAL
people most about our human rights protections.
10. We will provide advice in March on options for sequencing and scoping a review and initial
engagement approaches. Some issues, such as changes to the Commission’s structure
and functions could be on a faster track, potentially resulting in more targeted engagements
THE
in 2022/23.
As a result of starting the review the timing for the incitement work would shift
11. We expect that the initial engagement and scoping work would take up a significant part of
2022. This would be followed by a consideration of policy options, with further public
consultation on possible approaches being likely.
12. Because of this, any changes to legislation would not be introduced until the next
UNDER
Parliamentary term, unless they are relatively targeted and discrete changes.
Next steps
13. There have been several requests for updates on the incitement proposals following the
completion of the public consultation process. Participants in the consultation would have
a particular interest in hearing about next steps.
14. As discussed with you, we wil provide initial advice in March on options for scoping,
sequencing and engagement for the review. Once you have approved an approach, you
may wish to consider a public statement.
RELEASED
1982
ACT
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
1982
ACT
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
To: s9(2)(a)
Cc: s9(2)(a)
Purple, Folder <[email address]>;
Mercuri, Alida <[email address]>; Shergill, Navie <[email address]>; Johnston,
1982
Anna <[email address]>; Brightwell, Kathy <[email address]>; Dearsley,
Justine <[email address]>
Subject: RE: Note - Progressing the incitement work as part of a wider human rights review
ACT
Kia ora Mike,
Thanks for your email. We are going to get the answers to you this afternoon by COP. Does that work for
you timing wise?
Kind regards,
Ursula
From: s9(2)(a)
Sent: Thursday, 3 February 2022 1:49 pm
To: Kerpen, Ursula <[email address]>
Cc: s9(2)(a)
Purple, Folder <[email address]>;
Mercuri, Alida <[email address]>; Shergill, Navie <[email address]>; Johnston,
Anna <[email address]>; Brightwell, Kathy <[email address]>
Subject: RE: Note - Progressing the incitement work as part of a wider human rights review
Kia ora Ursula
INFORMATION
We’ll put this in the Minister’s weekend bag. I’m just reading through now and wanted to check a couple of
points.
In para 11 when we say “initial engagement and scoping work”, who are we thinking the initial
engagement would be with – and on what?
Is the March advice going to have more detailed timelines for the various sequencing and
engagement choices from paras 9-10?
Ngā mihi
OFFICIAL
Mike Gill
Private Secretary – Justice | Office of Hon Kris Faafoi
s9(2)(a)
Parliament Buildings | Wellington 6160 | New Zealand
THE
Authorised by Hon Kris Faafoi MP, Parliament Buildings, Wellington 6011
From: Kerpen, Ursula [mailto:[email address]]
Sent: Thursday, 3 February 2022 12:55 PM
To: s9(2)(a)
Cc: s9(2)(a)
Purple, Folder <[email address]>;
UNDER
Mercuri, Alida <[email address]>; Shergill, Navie <[email address]>; Johnston,
Anna <[email address]>; Brightwell, Kathy <[email address]>
Subject: Note - Progressing the incitement work as part of a wider human rights review
Kia ora Mike,
Please find attached the note on progressing changes to the incitement laws as part of a wider review of the
human rights system. Please let me know if there is anything else you need.
Kind regards,
Ursula
RELEASED
1982
ACT
INFORMATION
OFFICIAL
THE
UNDER
RELEASED
Document Outline
- Documents proposed for release (2).pdf
- Purpose
- Key messages
- The Government consulted on its in-principle proposals to amend the incitement laws
- Changes to the incitement laws would fit well into a wider review
- As a result of starting the review the timing for the incitement work would shift
- Next steps