Five-Year Strategy to Tackle Hate Speech

Introduction to the National Action Plan

The government has initiated nationwide consultations on a Draft National Action Plan to Prevent and Combat Hate Speech (2026–2031), aiming to reduce reported hate speech incidents by 70 per cent by 2031. The draft plan was introduced on June 18 during the commemoration of the International Day for Countering Hate Speech, which focused on the theme: “The Power of Partnerships in Countering Hate Speech.” This initiative highlights the importance of collaborative efforts in addressing the growing issue of hate speech.

Key Priorities of the Draft Plan

Among the immediate priorities of the draft plan are the establishment of a National Hate Speech Coordination Committee chaired by the Ministry of National Unity and Civic Engagement (MINUBUMWE). Additionally, the plan includes a monitoring and rapid response desk, a nationwide baseline assessment on hate speech trends, and a specialized hate speech investigation unit within the Rwanda Investigation Bureau (RIB) equipped with digital forensic capabilities. These measures are designed to enhance the country's ability to detect and respond to hate speech effectively.

Engaging Technology Companies

The plan also proposes victim-friendly reporting hotlines in all districts and stronger engagement with major technology companies, including Meta, Google, and X, on content moderation. This collaboration is essential as the digital landscape continues to evolve, presenting new challenges in the fight against hate speech.

Digital Challenges and Historical Context

Eric Mahoro, Permanent Secretary at MINUBUMWE, emphasized that Rwanda's history places a special responsibility on the country to lead efforts against hate speech. He noted that since the 1994 Genocide against the Tutsi, Rwanda has established legal and policy frameworks to combat genocide ideology, hate speech, and related crimes. However, Mahoro warned that the threat persists, particularly in digital spaces.

Hate speech has evolved and taken new forms, amplified by digital technologies and social media platforms. The emergence of campaigns that deny and distort the history of the Genocide against the Tutsi, including propaganda linked to genocide denial networks operating across borders, poses a significant challenge. Politically motivated attacks that conceal ethnic hatred through coded language further complicate the situation, as content shared in Kinyarwanda can be difficult for automated moderation systems to detect.

Youth-Led Digital Peacebuilding Initiatives

The action plan will be supported by the Preventing Hate Speech and Promoting Digital Peacebuilding in Rwanda project, implemented by Vision Jeunesse Nouvelle (VJN). Brother Vital Ringuyeneza, VJN’s Executive Director, highlighted the initiative's goal to counter hate speech, misinformation, and divisive narratives through youth engagement, digital literacy, and positive online communication.

A key component of this initiative is the creation of a network of 100 Digital Peace Ambassadors drawn from youth organizations, universities, civil society groups, media houses, and social media influencers. These ambassadors have been trained in digital literacy, peace messaging, and strategies for countering harmful online narratives. Ringuyeneza emphasized the power of words to either divide or unite, destroy or heal, spread hatred or inspire hope.

Stakeholder Input and Recommendations

Participants in the consultations stressed the need for stronger prevention, monitoring, and enforcement measures. Prosecutor General Angélique Habyarimana suggested that public recommendations would help strengthen the plan, while emphasizing the need to investigate and prosecute individuals involved in online genocide ideology and hate speech, including those operating from abroad.

Chief Superintendent of Police Hillary Emmanuel Sengabo, spokesperson for the Rwanda Correctional Service, called for a campaign against hate speech and targeting those who appear to be hired to spread genocide ideology and hate speech. Rwanda Governance Board Secretary-General Edward Kalisa called for a dedicated national program to combat hate speech.

Scovia Mutesi, Chairperson of the Rwanda Media Commission, proposed establishing a network of genocide prevention and hate speech experts to support journalists with accurate information and effective counter-narratives. Enock Byukusenge, an alumnus of Itorero Indangamirwa, noted that young people are highly active on online platforms where such hate speech is prevalent and need to be engaged and equipped with historical knowledge to challenge false narratives with evidence.

Dominique Kubwimana, a social media influencer and Digital Peace Ambassador, added that many young people use social media extensively but lack sufficient knowledge about genocide and hate speech, a gap that should be addressed through the action plan.

Understanding Hate Speech

Experts define hate speech as any communication, whether in speech, writing, or behavior, that attacks or uses discriminatory language against a person or group based on religion, ethnicity, nationality, race, color, descent, gender, or another identity factor. Brother Vital Ringuyeneza noted that hate speech in Rwanda extends beyond genocide ideology and can manifest through social exclusion and discrimination in everyday life.

Sometimes people choose to associate only with those they consider part of their group, reject others, or make decisions based on divisions rather than shared values. While such behavior may appear insignificant, Ringuyeneza warned that it can gradually fuel prejudice and social fragmentation. If these behaviors are not moderated, they can become an ideology, leading to harmful words, actions, and behaviors.

Genocide-related hate speech remains a particular concern because some individuals continue to deny or distort the history of the 1994 Genocide against the Tutsi and threaten survivors. The rapid spread of information through social media has made the challenge more urgent. Technology does not have boundaries, and education is needed to distinguish between true and false information to protect society.

Conclusion

Mahoro stressed that combating hate speech requires both prevention and accountability. Hate speech often begins as a mindset, developing through repeated messages, attitudes, and beliefs before being deliberately used as a tool to harm others. That is why prevention, education, and counter-speech are just as important as punishment. He added that freedom of expression does not protect speech that denies or distorts genocide, dehumanizes people based on identity, or incites discrimination and violence. Hate speech is not free speech.