COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Strategy on Combating Antisemitism and Fostering Jewish Life (2021-2030)
Date: 2021-10-05
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU strategy, Jew, Judaism, antisemitism, crime against humanity, cultural heritage, equal treatment, freedom of religious beliefs, religious discrimination, rights of minorities

EN 

  EN 

   EUROPEAN COMMISSION  Strasbourg, 5.10.2021  COM(2021) 615 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU Strategy on Combating Antisemitism and Fostering Jewish Life (2021-2030)            
 
 
‘Because  antisemitism  strikes  at  the  heart  of  our  values:  humanity,  religious  freedom, 
equality. Antisemitism is a poison for our society. It is up to all of us to fight it. To prevent it. 
And to eradicate it.’  

― Ursula von der Leyen, President of the European Commission  
Brussels, 3 February 2021 

‘The hate that begins with Jews never ends with Jews. We make a great mistake if we think 
antisemitism is a threat only to Jews. It is a threat, first and foremost, to Europe and to the 
freedoms it took centuries to achieve.’ 

― Rabbi Jonathan Sacks 
European Parliament, 27 September 2016 

TOWARDS AN EU FREE FROM ANTISEMITISM 

European  Jews  and  Jewish  communities  have  been  contributing  to  the  social,  political, 
economic, scientific and cultural  development  of Europe  for over two millennia and  are an 
inextricable  part  of  Europe’s  identity.  From  Gustav  Mahler  to  Sigmund  Freud,  Hannah 
Arendt  and  Simone  Veil,  Jewish  people  have  enriched  Europe’s  cultural,  intellectual  and 
religious heritage.  

At the same time, antisemitism has been present in Europe for centuries, manifesting in the 
form  of  expulsions,  persecutions  and  pogroms,  which  culminated  in  the  Holocaust,  an 
indelible stain on European history and erased Jewish life and heritage in many parts of the 
continent.  The  European  Union  has  its  historical  roots  in  the  Second  World  War  and  the 
unequivocal commitment of Europeans to ensure that such atrocities never happen again.  

However,  antisemitism  did  not  end  with  the  Holocaust.  Generations  after  the  end  of  the 
Shoah1, antisemitism is worryingly on the rise, in Europe and beyond.  

The  European  Union  is  founded  on  the  values  of  respect  for  human  dignity,  freedom, 
democracy,  equality,  the  rule  of  law  and  respect  for  human  rights,  including  the  rights  of 
persons  belonging  to  minorities.  It  stands  unequivocally  against  all  forms  of  hatred  and 
discrimination  on  any  ground,  racial  or  ethnic  origin,  religion  or  belief,  gender,  sexual 
orientation, age or disability.   

Antisemitism  is  incompatible  with  Europe’s  core  values.  It  represents  a  threat  not  only  to 
Jewish communities and to Jewish life, but to an open and diverse society, to democracy and 
the European way of life. The European Union is determined to put an end to it. 

Every second European considers antisemitism as a problem. 

Nine out of ten Jews consider that antisemitism has increased 
in their country. 

85% Jews consider antisemitism to be a serious problem2. 

1  Shoah  is  the  Hebrew  word  for  ‘catastrophe’,  while  Holocaust  derives  from  the  Greek  word  for  ‘completely 
burnt  offering’.  This  Strategy  will  use  both  terms.  https://aboutholocaust.org/en/facts/what-is-the-difference-
between-holocaust-and-shoah. 
2  Eurobarometer  484:  Perceptions  of  antisemitism,  January  2019  and  Experiences  and  perceptions  of 
antisemitism  Second  survey  on  discrimination  and  hate  crime  against  Jews  in  the  EU,  2018  (Second  FRA 
Survey 2018). 

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Contemporary antisemitism occurs in many forms, old and new: from online hate speech to 
hate crimes and attacks on Jewish people, their properties and institutions, to desecration of 
synagogues,  cemeteries  and  memorials.  It  occurs  in  the  daily  lives  of  Jewish  people  in  the 
form  of  casual  remarks  or  actions  at  work,  private  conversations,  in  public  places,  in  the 
media, sports and culture or when Jewish people are practicing their religion. Antisemitism 
manifests itself as racial, ethnic or religious discrimination, stereotyping and hatred of Jews 
and people perceived as Jewish. It can lead to violent and lethal attacks such as those on the 
Ozar  Hatorah  school  in  Toulouse  in  2012,  the  Jewish  Museum  in  Brussels  in  2014,  the 
Hypercasher in Paris in 2015, or on the Synagogue in Halle in 2019.  

In addition, the COVID-19 pandemic has shown how old antisemitic prejudices can resurge 
and fuel new conspiracy myths and hatred online and offline. Jewish people have been one of 
the most attacked communities during the pandemic; they have been unjustifiably blamed for 
creating  the  virus  and  for  developing  vaccines  to  make  a  profit3.  This  is  compounded  by 
comparisons  of  pandemic  measures  with  policies  that  led  to  the  genocide  of  the  Jewish 
people4 that minimise and trivialise the experiences of Holocaust victims and survivors5.  

While hate speech and violence are easily identifiable, widespread ignorance and indifference 
in our society allows antisemitism to flourish and even grow, if left unaddressed. We all have 
a responsibility to continuously inform and educate the young and the old. This is especially 
true as the generations who experienced the Holocaust are almost gone, making it even more 
difficult to pass on the first-hand experience and the essential lessons to the next generations.  

Jewish life in the EU in the 21st century 

Before the Second World War, an estimated 9.5 million Jewish people lived in Europe. Six 
million  Jews  were  systematically  murdered  by  the  Nazis  and  their  collaborators  in  the 
Holocaust. Nowadays, the Jewish population in the EU is estimated to be up to 1.5 million 
people6. 

Today,  Jewish  life  across  Europe  is  vibrant  again.  Over  the  past  decades,  many  European 
countries  have  witnessed  a  revival  of  Jewish  life  and  culture.  Jewish  identity  has  been 
strengthened  and  is  an  integral  part  of  European  society.  However,  due  to  the  increasing 
number  of  antisemitic  attacks7,  fear  among  Jewish  communities8  has  also  increased  and 
further security measures for Jewish premises have been necessary. 

In  recent  years,  the  Jewish  population  in  the  EU  has  been  declining,  due  in  large  part  to 
migration  to  outside  of  the  EU9.  This  is  linked  to  several  factors10,  in  particular  to  security 

3 Coronavirus and the plague of antisemitism, Community Security Trust, 2021. 
4  For  example  by  wearing  a  yellow  Star  of  David  stating  ‘unvaccinated’  in  letters  resembling  the  Hebrew 
alphabet. 
5 The rise of antisemitism online during the pandemic - A study of French and German content, June 2021. 
6  The  size  of  Jewish  communities  in  the  Member  States  varies  widely.  Around  half  a  million  Jews  live  in 
France, while the smallest communities only count a few thousand or sometimes even a few hundred members, 
often still as a consequence of the Holocaust.  
Jews  in  Europe  at  the  turn  of  the  Millennium.  Population  trends  and  estimates  by  Sergio  DellaPergola  and 
Daniel Staetsky, JPR European Jewish Demography Unit, October 2020. 
7 Antisemitism: Overview of antisemitic incidents recorded in the European Union 2009-2019, by the European 
Union Agency for Fundamental Rights (FRA).  
8 In 2013, 33% of respondents said they worry about being physically attacked. In 2018, this increased to 40%.  
‘Discrimination  and  hate  crime  against  Jews  in  EU  Member  States:  experiences  and  perceptions  of 
antisemitism’, 2013 (First FRA Survey 2013); (Second FRA Survey 2018).  
9 Are Jews leaving Europe?, by Daniel Staetsky, JPR Report, January 2017. 
10 International Migration of Jews by Sergio DellaPergola, 2007.  

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concerns, as well as to the perceived lack of determination of some governments to address 
antisemitism11 and the politicisation of public debates around Jewish customs and traditions.  

Stepping up the fight against antisemitism 

For the past 20 years, antisemitism has been addressed as part of the European Union’s work 
tackling racism12. Given the significant rise of antisemitism, the efforts in addressing it have 
accelerated  in  recent  years  and  the  fight  against  antisemitism  has  been  brought  to  the 
forefront of the EU political agenda. In 2015, the European Commission appointed the first-
ever  Coordinator  on  combating  antisemitism  and  fostering  Jewish  life.  In  June  2017,  the 
European  Parliament  adopted  a  resolution  on  combating  antisemitism13  and  in  December 
2018, the Council adopted a Declaration on the fight against antisemitism14. To support the 
implementation  of  the  Declaration  the  Commission  set  up  an  ad-hoc  Working  Group  on 
combating  antisemitism15,  bringing  together  Member  States  and  Jewish  communities.  In 
December  2019,  the  fight  against  antisemitism  became  part  of  the  portfolio  of  the 
Commission  Vice-President  for  Promoting  our  European  Way  of  Life,  signalling  the 
intention to address  it  as a cross-cutting priority.  In December 2020, the Council adopted a 
further  Declaration  centred  on  mainstreaming  the  fight  against  antisemitism  across  policy 
areas16. This has been strengthened by the adoption of a series of strategies fostering a Union 
of Equality package through an intersectional lens17. 

The persistence and increase of antisemitism requires a stronger response at EU level. With 
this strategy, the first of its kind, the Commission is determined to significantly step up the 
fight against antisemitism and help create an inclusive society based on equality and respect, 
to ensure a good perspective for the future of Jews in Europe.  

This  strategy  is  based  on  a  wide  consultation18  of  relevant  stakeholders.  The  Commission 
invites EU institutions, Member States, international organisations and all civil society actors 
and  citizens  to  commit  to  a  future  free  from  antisemitism  in  the  EU  and  beyond.  The 
Commission  will  engage  in  a  regular  dialogue  with  the  European  Parliament  and  with 
Member States’ national parliaments to encourage renewed action on combating antisemitism 
and  fostering  Jewish  life.  In  full  respect  of  national  competences,  this  strategy  sets  out  the 
policy  framework  for  the  Commission  for  the  period  2021-2030  and  aims  to  support  and 
encourage cooperation between Member States and all stakeholders.   

Crucially,  this  strategy  seeks  to  go  beyond  responding  to  antisemitism  alone  and  step  up 
action  to  actively  prevent  and  combat  it  in  all  its  forms  and  to  ensure  that  Jewish  life 
continues to thrive in an inclusive and diverse EU. The strategy comprises three pillars: 

11 70% of respondents in the  Second FRA Survey 2018 believe that the  government in their country does not 
combat antisemitism effectively. 
12  Following  the  adoption  of  Racial  Equality  and  Employment  Equality  Directives  in  2000,  Commission 
President Prodi called a dedicated high-level conference in 2004 “Europe, against antisemitism for a Union of 
diversity”. In the same year, the European Monitoring Centre on Racism and Xenophobia (EUMC) developed a 
working definition of antisemitism that later on formed the basis for the International Holocaust Remembrance 
Alliance (IHRA) working definition of antisemitism.  
13 European Parliament resolution of 1 June 2017 on combating antisemitism. 
14 Council Declaration on the fight against antisemitism, 6 December 2018. 
15 European Commission’s work on combating antisemitism. 
16 Council Declaration on mainstreaming the fight against antisemitism across, 2 December 2020. 
17 Since 2020: the Gender equality strategy (2020-2025), the Anti-Racism action plan (2020-2025), the Roma 
strategic framework for equality, inclusion and participation (2020-2030), the LGBTIQ equality strategy (2020-
2025),  the  Strategy  for  the  rights  of  persons  with  disabilities  (2021-2030).  In  addition,  the  European 
Commission established a Task Force on Equality and appointed an anti-racism coordinator.  
18 This strategy is based on a wide consultation including national and regional authorities, Jewish communities 
and organisations, independent experts and researchers, FRA, international organisations, and other stakeholders 
(See Summary Report here). 

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 1 – Preventing and combating all forms of antisemitism 

 2 – Protecting and fostering Jewish life in the EU 

 3 – Education, research and Holocaust remembrance 

This  strategy  also  seeks  to  place  the  EU  firmly  in  the  lead  of  the  global  fight  against 
antisemitism, complementing measures within the EU with international efforts along all the 
three pillars.  

All forms of hatred undermine the value of a person and are incompatible with what the EU 
stands for. This strategy is part of the Commission’s efforts on combating all forms of hatred, 
discrimination  and  racism.  It  complements  the  EU  anti-racism  action  plan  2020-2025,  as 
racism  can  also  be  combined  with  discrimination  and  hatred  on  other  grounds,  including 
religion or belief. This needs to be taken into account through an intersectional approach19 to 
truly pave the way towards an EU free from antisemitism and fostering Jewish life in all of its 
diversity  and  achieve  concrete  improvements  for  the  Jewish  people  and  their  future  in 
Europe. In specific instances, this strategy will also take note of the commonalities between 
the experience of discrimination of Jewish people and other ethnic or religious minorities. 

I. 

PREVENTING AND COMBATING ALL FORMS OF ANTISEMITISM 

‘Let  us  remember:  what  hurts  the  victim  most  is  not  the  cruelty  of  the  oppressor  but  the 
silence of the bystander.’ 

― Elie Wiesel 

Contemporary antisemitism can be found in radical and fringe groups espousing right-wing, 
left-wing or Islamist extremism, it can hide behind anti-Zionism, but it can also be found in 
the centre of society20. Antisemitic speech and behaviour can be open or veiled, conscious or 
unconscious. Antisemitism can take the form of illegal acts, which are punishable under EU 
and national law. Manifestations of antisemitism might include Israel-related antisemitism21, 
the most common form of antisemitism encountered online by Jews in Europe today22. Long-
standing  antisemitic  conspiracy  myths  and  disinformation,  while  not  necessarily  illegal,  are 
harmful.  They  perpetuate  prejudices  and  stereotypes  and  can  lead  to  discrimination, 
marginalisation, radicalisation and hate crime.  

Since  2017,  the  Commission  has  been  using  the  non-legally  binding  working  definition  of 
antisemitism of the International Holocaust Remembrance Alliance (IHRA definition)23 as a 
practical  guidance  tool  and  a  basis  for  its  work  to  combat  antisemitism24.  The  IHRA 

19  See,  for  instance,  Graham,  D.  and  Boyd,  J.,  “Understanding  more  about  antisemitic  hate  crime:  Do  the 
experiences, perceptions and behaviours of European Jews vary by  gender, age and religiosity?” - Institute for 
Jewish Policy Research, 2017. 
20 For more information on perpetrators of antisemitism, see Second FRA Survey 2018.  
21 Terminology  used by  many  stakeholders, in line  with the  IHRA definition, e.g. accusing Jewish citizens of 
being  more  loyal  to  Israel,  or  to  the  alleged  priorities  of  Jews  worldwide,  than  to  the  interests  of  their  own 
nations;  claiming  that  the  existence  of  a  State  of  Israel  is  a  racist  endeavour;  holding  Jews  collectively 
responsible for actions of the state of Israel. 
22  79%  of  European  Jews  feel  blamed  for  something  done  by  the  State  of  Israel.  69%  say  the  Arab-Israeli 
conflict impacts on feeling of safety (Second FRA Survey 2018). 
23 The definition states: Antisemitism is a certain perception of Jews, which may be expressed as hatred toward 
Jews.  Rhetorical  and  physical  manifestations  of  antisemitism  are  directed  toward  Jewish  or  non-Jewish 
individuals  and/or  their  property,  toward  Jewish  community  institutions  and  religious  facilities.  The  IHRA 
definition includes a number of illustrative examples. 
24The IHRA definition was endorsed by the 2018 and 2020 Council Declarations and the European Parliament 
Resolution of 1 June 2017. It is used for education, training and unmasking antisemitism and has no bearing on 

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definition  is  the  benchmark  for  promoting  a  rights-based  and  victim-centred  approach25.  In 
January 2021, the Commission in cooperation with the IHRA published the Handbook for the 
practical use of the IHRA working definition of antisemitism26, which provides an overview 
of  good  practices  from  across  Europe  on  the  use  of  the  definition  by  international 
organisations, national administrations, civil society and Jewish communities27.  

1.1.  Fighting antisemitism across policy areas and mobilising EU funds  

Addressing  antisemitism  is  a  complex  challenge.  Its  multi-faceted  manifestations  and  its 
prevalence  across  the  social  and  political  spectrum  call  for  a  comprehensive  response, 
ranging  from  a  solid  legal  framework  that  is  properly  enforced,  to  security  aspects,  to 
education and inclusion policies, to name a few.  

The  Commission  will  therefore  take  the  fight  against  antisemitism  systematically  into 
consideration  when  developing  policies,  legislation  and  funding  programmes,  and  invites 
other  EU  institutions  to  cooperate  on  strengthening  mainstreaming  tools  and  practices.  In 
addition,  Member  States  have  already  committed  to  prevent  and  fight  all  forms  of 
antisemitism  through new national  strategies, or measures under existing national  strategies 
and/or action plans on preventing racism, xenophobia, radicalisation and violent extremism28. 
To have an impact, these strategies need to include targeted actions and be supported with the 
appropriate  funding.  The  adoption  of  the  IHRA  definition29  and  the  appointment  of  special 
envoys or coordinators by all Member States are also necessary steps for effective  action at 
national level. 

A  reinforced  involvement  of  civil  society  organisations  and  Jewish  communities  is  key  for 
the strategy to be successful. The Commission aims to enhance active cooperation with them 
and provide financial support for initiatives in all areas covered by the strategy.  

Targeted  actions  will  be  pursued  through  a  wide  variety  of  EU  funding  programmes30,  in 
particular,  the  citizens,  equality,  rights  and  values  (CERV)  programme31,  which  with  a 
budget  of  EUR  1.55  billion  is  the  largest  funding  EU  programme  ever  to  promote 
fundamental rights. In addition, relevant actions will be supported through EU programmes 
such  as  the  Justice  programme,  Horizon  Europe,  Creative  Europe,  Erasmus+,  the  Internal 
Security Fund, the cohesion policy funds, the Neighbourhood, Development and International 
Cooperation  Instrument  (NDICI),  and  the  Instrument  for  Pre-accession  Assistance  (IPA). 
Furthermore, through the Technical Support Instrument, the Commission can fund structural 
reforms  in  Member  States,  including  on  a  multi-country  basis,  to  enhance  cooperation  and 
build on best practices in the fight against discrimination and antisemitism. 

All  Member  States’  actions  undertaken  for  the  implementation  of  EU  funds  need  to  fully 
respect the principle of non-discrimination. In particular, the Charter of Fundamental Rights 
of the EU, which prohibits any discrimination based, among others, on racial or ethnic origin, 

EU  or  national  legal  definitions  determining  to  what  extent  a  behaviour  or  speech  would  constitute  illegal 
discrimination, hate speech, biased motivation for a hate crime or illegal manifestations of antisemitism.  
25 Other definitions of antisemitism have been developed recently, such as the Nexus Document (2020) and the 
Jerusalem Declaration on Antisemitism (2021).  
26 Handbook for the practical use of the IHRA working definition of antisemitism.  
27 The General Policy Recommendations on preventing and combating Antisemitism published by the Council 
of Europe’s Commission against Racism (ECRI) on 14 September 2021 can also serve as useful reference.  
28 Council Declaration on mainstreaming the fight against antisemitism across, 2 December 2020. 
29 EU Member States that have already adopted or endorsed the IHRA definition: Austria, Belgium, Bulgaria, 
Cyprus,  Czechia,  Germany,  Greece,  Spain,  France,  Hungary  Italy,  Lithuania,  Luxembourg,  the  Netherlands, 
Romania, Sweden, Slovakia and Slovenia. 
30 Under the current multi-annual financial framework for 2021-2027.  
31 C(2021) 2699 final; CERV Programme.  

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religion or belief, must be respected throughout the preparation, implementation, monitoring, 
reporting  and  evaluation  of  the  programmes.  In  case  of  violation  of  EU  anti-discrimination 
rules, including discrimination of Jewish people on the grounds of their religion or ethnicity, 
funding may be suspended. The Commission and the Member States monitor the respect of 
these rules for all EU-funded programmes. 

To  support  the  implementation  of  this  strategy  and  help  coordinate  Member  States’  efforts 
the Commission will formalise the ad hoc Working Group on combating antisemitism as a 
permanent structure that brings together Member States, Jewish communities’ representatives 
and other stakeholders.   

The EU Agency for Fundamental Rights (FRA) will also support the EU and Member States 
with evidence, assistance and expertise when monitoring the implementation of this strategy 
and national strategies or action plans on combating antisemitism. 

Key actions:  

The Commission will: 

  Organise  an  annual  civil  society  forum  on  combating  antisemitism,  bringing 
together representatives from the Commission and Jewish communities, civil society 
and other stakeholders to create links and maximise the effect of joint actions and EU 
funding.  

  Support Member States’ efforts in designing and implementing national strategies 
on  combating  antisemitism  or  discrimination,  through  the  Technical  Support 
Instrument32 and assess them by end 2023. 

Member States are encouraged to: 

  Develop  national  strategies  by  end  2022  on  combating  antisemitism,  or  include 
measures  in  their  national  action  plans  against  racism,  and  provide  sufficient 
funding to implement them. 

  Adopt  and  use  the  IHRA  definition  of  antisemitism  and  encourage  local 
authorities, regions, cities, and other institutions and organisations to do the same.  
  Appoint  special  envoys/coordinators  on  combating  antisemitism  and  fostering 

Jewish life. 

1.2.  Combating antisemitic hate speech and hate crime 

Jewish  people  are  the  main  target  of  crimes  committed  on  an  antisemitic  bias33.  However, 
rhetorical  and  physical  manifestations  of  antisemitism  can  be  directed  towards  non-Jewish 
individuals as well34. 

32 Regulation (EU) 2021/240. 
33 The Antisemitism: Overview of antisemitic incidents recorded in the European Union 2009-2019 shows that 
Member  States  record  thousands  of  officially  recorded  incidents  every  year,  as  do  civil  society  organisations 
working in the area. 
34 In line with the IHRA definition of antisemitism.  

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71% of Jewish people who sometimes carry or display items that 
could 
least 
occasionally35. 

them  as  Jewish  avoid  doing  so  at 

identify 

44%  of  young  Jewish  Europeans  have  experienced  antisemitic 
harassment36.    

The  EU  Framework  Decision  on  combating  racism  and  xenophobia  by  means  of 
criminal law 37 provides a strong legal framework to combat antisemitic hate crimes and hate 
speech,  including  public  condoning,  denial  or  gross  trivialisation  of  the  Holocaust  in  a 
manner likely to incite to violence or hatred. Its full and correct transposition is a priority for 
the  Commission38.  Law  enforcement  and  the  judiciary  play  a  crucial  role  in  effectively 
implementing legislation on hate speech and hate crime (including the Framework Decision) 
and safeguarding the rights of victims. To further strengthen the legal framework, in 2021 the 
Commission will introduce an initiative to extend the list of ‘EU crimes’ to cover hate crime 
and hate speech39. 

The  Commission  supports  Member  States  through  the  High  Level  Group  on  combating 
racism  and  xenophobia  and  other  forms  of  intolerance40  and  cooperates  with  the  EU 
Agency  for  Law  Enforcement  Training  (CEPOL),  FRA41,  the  European  Judicial  Training 
Network  (EJTN),  Member  States  and  civil  society  organisations  to  develop  training  and 
capacity-building for law enforcement and the judiciary, improve hate crime recording and 
data  collection,  as  well  as  to  encourage  victims  to  report  hate  crime  and  strengthen 
cooperation between law enforcement and Jewish communities. 

The  EU  strategy  on  victims’  rights  (2020-2025)42  aims  to  ensure  that  victims  of  crime, 
including  of  antisemitic  hate  crimes,  can  fully  rely  on  their  rights  and  be  protected  against 
secondary  victimisation43.  Support  structures  for  victims  of  antisemitic  incidents  across 
Europe  are  often  inadequate.  Member  States  are  encouraged  to  set  up  integrated  and 
targeted specialist support services for the most vulnerable victims, including for victims of 
antisemitic  hate  crime.  They  should  also  ensure  specific  training  on  non-discrimination  for 
police and others coming into contact with victims of antisemitic hate crime.  

35 Second FRA Survey 2018. 
36 Young Jewish Europeans: perceptions and experiences of antisemitism, FRA, 2019. 
37  Council Framework Decision 2008/913/JHA of 28 November 2008  
38 Since October 2020, the Commission has launched several infringements proceedings to ensure the full and 
correct transposition of the Framework Decision by Member States.  
39 In Article 83 TFEU.  
40 https://ec.europa.eu/newsroom/just/items/51025/en 
41 Encouraging hate crime reporting - The role of law enforcement and other authorities, FRA, 2021.  
42 COM(2020) 258 final.  
43  Secondary  victimisation  can  be  defined  as  negative  consequences  for  victims  that  may  result  from  their 
participation  in  criminal  proceedings,  including  victims’  exposure  to  contacts  with  their  perpetrators,  judicial 
authorities and/or the general public. 

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The  Commission  will  continue  to  monitor  the  implementation  of  the  Victims’  Rights 
Directive44, which ensures that all victims of crime have rights, including access to specialist 
support  services  and  protection  measures  that  correspond  to  their  individual  needs  and 
vulnerability.  With  the  European  judicial  training  strategy  for  2021-202445,  the 
Commission  supports  the  training  of  justice  professionals  to  ensure  that  EU  legislation  is 
correctly  applied  and  that  professionals  are  equipped  with  the  relevant  skills.  The 
Commission  will  also  support  the  development  of  trainings  as  well  as  materials  on 
antisemitism  and  make  them  available  on  the  ‘European  Training  Platform’46  of  the 
European  e-Justice  Portal.  With  the  EU  Strategy  on  the  rights  of  the  child47,  the 
Commission  aims  to  mainstream  children’s  rights  across  EU  policies,  to  better  protect 
children who are victims of discrimination, including based on religion or belief. 

Reliable and comparable data on antisemitic incidents are crucial to assess the spread of 
antisemitism in Europe and to tackle it effectively48. Recording of reported incidents is often 
inconsistent  as  Member  States  use  different  methodologies  and  data  can  therefore  not  be 
compared. Within the High Level Group on combating racism and xenophobia, the FRA will 
help Member States improve and align their methodologies for recording and collecting 
data on hate crime, including on antisemitism. 

Underreporting  is  a  challenge:  79%  of  Jewish  people  surveyed  did  not  report  their  most 
serious antisemitic incident to any organisation49. In this regard, Member States should make 
it easier for victims of antisemitic hate crime and hates speech to report incidents, offering a 
variety of channels, so as to increase the level of reporting and improve the recording of such 
incidents.  

Key actions:  

The Commission will: 

  Support  organisations  and  projects  to  combat  and  record  antisemitic  hate  speech 

and hate crime through the CERV programme. 

  Assist Member States in ensuring that integrated and targeted support services are 
available  and accessible  to  victims of antisemitic hate  crime, including through EU 
funding. 

  Enhance  support  to  training  programmes  and  capacity-building  activities  on 
tackling  antisemitism  for  justice  and  law  enforcement  professionals,  including 
through the European Judicial Training Network (EJTN) and the EU Agency for Law 
Enforcement Training (CEPOL). 

Members States are encouraged to: 

  Swiftly  complete  the  transposition  and  implementation  of  the  Framework 
Decision on combating racism and xenophobia and prosecute antisemitic hate speech 
and hate crime in line with EU and national legislation. 

  Closely  coordinate  with  the  EJTN  and  CEPOL  and  cooperate  with  civil  society 

organisations on training activities to tackle antisemitism. 

44 Directive 2012/29/EU.  
45 COM(2020) 713 final.  
46 The European Training Platform (ETP). 
47 COM(2021) 142 final. 
48 Germany and the UK fund NGOs that record antisemitic incidents using methodology agreed with the police. 
These NGOs are linked with the Jewish community structures and contribute to official police statistics. 
49 Second FRA Survey 2018.  

8 

 
 
 
                                                           
1.3.  Tackling antisemitism online 

Antisemitism  is  widespread  online50  and  can  lead  to  radicalisation  and  physical  attacks.  
Antisemitic speech – both online and offline – that incites violence and hatred is criminalised 
under  the  Framework  Decision  on  combating  racism  and  xenophobia.  Antisemitic 
stereotypes,  conspiracy  myths  and  disinformation,  although  not  necessarily  illegal,  are 
harmful.  Since  the  start  of  the  COVID-19  pandemic,  antisemitism  on  the  internet  has  risen 
sharply51. To tackle this problem effectively, more information is needed on how antisemitic 
content travels online and on the backgrounds and motivations of those sharing such content. 
New and innovative methods to address discrimination and antisemitic cyberhate also need to 
be found. 

Nazi-related symbols, memorabilia and literature as well as contemporary permutations of 
them are easily  accessible online. Displaying  and selling such products  may  constitute hate 
speech  under  national  laws  implementing  the  Framework  Decision  when  publicly  inciting 
hatred  and  violence.  However,  even  if  this  is  not  the  case,  such  online  availability  may 
perpetuate  Nazi  ideology  and  stimulate  an  antisemitic  subcultures.  Dialogue  with  industry 
and  IT  companies  needs  to  be  strengthened, building  on  the  experience  of  the  Code  of 
Conduct on countering illegal hate speech online, to ensure their cooperation in avoiding the 
display and/or sale of such items. 

The  Audiovisual  Media  Services  Directive52  stipulates  that  Member  States  ensure  that 
video-sharing  platform  providers take  appropriate  measures  to  protect  the  general  public 
from audiovisual content  and from  commercial  communications containing incitement  to 
violence or hatred, including antisemitic content. The proposal for a  Digital Services Act53 
sets  out  clear,  harmonised  due-diligence  obligations  for  online  platforms,  including  notice-
and-action  procedures  for  illegal  content  and  products,  empowering  users  to  report  hate 
speech in an easy and effective way. In addition, with regard to very large online platforms, 
the  proposal  focuses  on  addressing  remaining  gaps  that  allow  for  illegal  and  harmful 
behaviours online, in particular against vulnerable groups.  

The  Code  of  conduct  on  countering  illegal  hate  speech  online54  is  a  voluntary 
collaboration  between  the  Commission  and  IT  companies  to  prevent  the  spread  of  illegal  - 
including  antisemitic  hate  speech.  To  facilitate  integrated  action  by  EU  Member  States 
targeting  groups  and  individuals  spreading  hate  and  terrorist  content  online,  Europol 
coordinates European-wide action days targeting online racist and xenophobic hate speech55 
and online terrorist and violent extremist content, including antisemitic content.   

Under the action plan on disinformation56 and the European democracy action plan57 the 
Commission  and  the  EEAS  will  continue  to  pay  specific  attention  to  analysing  and 
responding to campaigns of disinformation, hate speech, incitement to violence and extremist 
rhetoric,  including  through  the  EEAS  East  StratCom  Task  Force.  In  addition,  the  Code  of 

50 89% of European Jews surveyed consider antisemitism to be the biggest problem online, with 80% saying that 
antisemitic statements  were the  most common toxic language they encountered.  (Second FRA  Survey 2018,). 
Jews are a  major target of toxic language online  (ranging  from  6.3% to 27.9% of the cases depending on the 
platform). Study: Heroes and scapegoats, 2021. 
51 The rise of antisemitism online during the pandemic study found a seven-fold increase in antisemitic postings 
on French language accounts, and over a 13-fold increase on German ones during the pandemic.  
52 Directive 2010/13/EU. 
53 COM(2020) 825 final.  
54 The Code of conduct on countering illegal hate speech online. 
55 Stopping Hate Speech Online: Europol Coordinates First Europe-Wide Action Day, 5 November 2020. 
56 JOIN(2018) 36 final.  
57 COM(2020) 790 final. 

9 

 
 
                                                           
Practice  on  Disinformation58  is  being  strengthened59,  also  contributing  to  better  fighting 
antisemitism  online.  Civil  society  organisations  work  closely  with  the  Commission  and 
online platforms to apply the Code of conduct and the Code of Practice. 

New technologies bring new opportunities to improve people’s lives, but can also exacerbate 
discrimination  and  amplify  harmful  content  online,  including  antisemitic  content.  The 
Artificial  Intelligence  (AI)  Act60  aims  to  prevent  high-risk  AI  systems  from  propagating 
discrimination  and  bias,  including  antisemitic  hatred.  AI  algorithms  can  also  be  used  to 
reinforce  positive  messages  and  counter-narratives  by  bringing  experts  together  to  address 
antisemitism, conspiracy myths and Holocaust denial or distortion online.  

Key actions:  

The Commission will: 

  Strengthen the fight against online antisemitism by supporting the establishment of a 
Europe-wide network of trusted flaggers and Jewish organisations,  in line with 
the  Code  of  conduct.  It  will  also  support  the  European  Digital  Media  Observatory 
and  its  national  hubs  to  increase  the  capacity  of  their  fact-checkers  on 
disinformation  and  will  work  with  independent  organisations  to  develop  counter- 
narratives, including in non-EU languages.    

  Organise  a  Hackathon  to  facilitate  exchanges  between  experts  to  develop  new 

innovative ways to address antisemitism in the online and digital environment.  

  Cooperate with industry and IT companies to prevent the illegal display and sale of 

Nazi-related symbols, memorabilia and literature online. 

  Conduct  a  comprehensive  data  analysis  to  better  understand  the  spread  of 

antisemitism online, how it travels and expands.  

  Address  antisemitic  hate  speech  in  the  upcoming  updated  Better  internet  for  kids 

strategy. 

Member States are encouraged to: 

  Support, including financially, civil society organisations in combating antisemitic 
hate speech, disinformation and conspiracy myths online, in relevant languages.  
  Strengthen  the  capacity  of  national  law  enforcement  and  judicial  authorities  to 

prosecute online hate speech. 

1.4.  Combating antisemitic discrimination  

Jewish people risk experiencing discrimination, in particular when they can be identified as 
being Jewish, i.e. by wearing a kippah or a Star of David necklace or when speaking openly 
about their Jewish identity. They may be at risk of discrimination when applying for a job or 
at  work  and  in  other  areas  such  as  education,  health  or  housing.  EU  law  prohibits 
discrimination based on racial or ethnic origin, religion or belief, including antisemitism. In 
particular,  the  Racial  Equality  Directive61  offers  protection  for  Jewish  people  against 
discrimination  (including  harassment)  based  on  ‘racial  or  ethnic  origin’  in  certain  areas  of 

58 The Code of Practice on Disinformation.  
59 COM(2021) 262 final. 
60 COM(2021) 206 final. 
61 Directive 2000/43/EC. 

10 

 
 
 
                                                           
life62 and the Employment Equality Directive63 offers protection for Jewish people against 
discrimination or harassment on the grounds of religion or belief in the area of employment.  

National equality bodies promote, analyse, monitor and support equal treatment. By 2022, 
the  Commission  will  propose  new  legislation  to  strengthen  their  role.  Diversity  Charters 
encourage  organisations  to  develop  and  implement  diversity  and  inclusion  policies  at  the 
workplace. The EU Platform of Diversity Charters has been set up to allow existing charters 
to  exchange  and  share  experience  and  good  practices64.  They  should  also  systematically 
address the specific challenges of identifying and combating antisemitism at the workplace. 

Equality  data  relating  to  Jewish  people  are  relatively  scarce  due  to  the  sensitivity  of 
collecting data based on racial or ethnic origin, religion or belief, and because European Jews 
are  a  rather  small  group  which  leads  to  less  available  aggregated  data  from  larger  surveys. 
The  EU  High  Level  Group  on  Non-discrimination,  Equality  and  Diversity,  through  a 
dedicated  subgroup,  supports  Member  States  in  gathering  data  to  help  analyse  the  state  of 
equality, in full respect of fundamental rights65. Furthermore, the Commission will carry out a 
series  of  actions  to  address  racial  and  ethnic  stereotypes  with  the  media,  civil  society  and 
representatives  of  people  with  a  minority  racial  or  ethnic  background  and  will  launch  an 
action to ensure a consistent approach to equality data collection, in particular as regards data 
disaggregated by racial or ethnic origin66. 

 Key actions:  

The Commission will: 

  Propose  binding  standards  for  national  equality  bodies  by  2022  and  cooperate 
with Equinet67 and equality bodies to increase their knowledge about antisemitism.  
  Support Member States in designing and implementing reforms aimed at tackling 
discrimination  in  schools  in  general  –  and  antisemitism  in  particular  –  within  the 
Technical Support Instrument, including on a multi-country basis in order to facilitate 
stronger cooperation and build on best practices. 
Include data related to antisemitism and Jewish people in the EU into the collection 
and  use  of  equality  data  on  the  grounds  of  racial  or  ethnic  origin  and  religion  or 
belief. 

 

Member States are encouraged to: 

  Ensure  that  national  equality  bodies  are  adequately  equipped  to  ensure  that 

incidents of antisemitic discrimination are properly addressed and reported.  

  Address  antisemitic discrimination  in  all areas, including, education and training, 
employment,  health  and  housing  through  targeted  actions  such  as  training  and 
awareness raising.   

1.5.  The European Commission leading by example  

As part of its own human resources strategy, the Commission will continue to strive for an 
inclusive  and  diverse  working  environment68  free  from  antisemitism,  through  diversity 

62 Employment and vocational training, social protection, including social security, social advantages, education, 
and access to and supply of goods and services, including housing. 
63 Directive 2000/78/EC. 
64 EU Platform of Diversity Charters 
65 Subgroup on Equality Data, FRA, 2019. 
66 Anti-racism action plan, COM(565) final. 
67 European Network of Equality Bodies. 

11 

 
 
  
                                                           
and  equality  policies  that  prevent  harassment,  discrimination  and  any  form  of  racism.  In 
particular,  it  will  continue  to  raise  awareness  among  its  staff  on  antisemitism  and  how  to 
combat  it,  and  increase  understanding  of  Jewish  life  and  culture,  including  as  part  of  a 
general focus on core European values such as respect for minority groups. Training will also 
cover  unconscious  biases  including  those  based  on  perceptions  of  religion  or  belief.  The 
Commission  will  continue  to  mark  the  Holocaust  with  internal  staff  events  and  awareness 
raising  initiatives  and  continue  to  host  the  annual  Euro-Chanukah69  to  recognise  diversity 
among  staff.  The  Commission  invites  the  other  EU  institutions  to  also  take  steps  to  foster 
diversity and inclusion in their respective workplaces. 

Key actions:  

The Commission will: 

  Continue to pursue a zero tolerance approach to incidents of antisemitism within 

the institution, using the IHRA definition as reference.  

  Provide  training  for  targeted  staff  such  as  human  resources  professionals  to 
recognise antisemitism based on the IHRA definition and organise study visits when 
relevant, for instance to Israel. 

  Encourage  the  use  of  flexible  working  arrangements  to  accommodate  a  religious 

 

holiday observance for all its staff. 
Invite  the  European  schools  to  ensure  that  all  pupils  learn  about  Jewish  life  in 
Europe,  the  Holocaust  and  antisemitism,  and  mark  the  annual  International 
Holocaust Remembrance Day, including by potential visits to memorial sites. 

II. 

PROTECTING AND FOSTERING JEWISH LIFE IN THE EU 

‘I’m  afraid  I’ve  lived  long  enough  to  see  things  that  I  thought  History  would  have  finally 
discarded, but they were only dormant.’ 

― Liliana Segre (Shoah survivor) 

For Jews to participate fully in European life, it is essential that they feel safe and secure. Yet, 
security  is  the  key  concern  for  the  Jewish  community70.  38%  of  Jews  have  considered 
emigrating because they do not feel safe as Jews in the EU71. 

One-third  (34%)  of  Jews  avoid  visiting  Jewish  events  or  sites  at 
least occasionally because they would not feel safe there or on the 
way there72. 

Several lethal terrorist attacks across Europe have shown that Jewish premises are not always 
adequately protected. Although it is the national authorities that are responsible for protecting 
all  citizens,  most  Jewish  communities  and  civil  society  organisations  have  had  to  invest 
significant funding in their own security measures.   

68 The European Commission set up its own Diversity and Inclusion Office in November 2020. 
69 The Jewish celebration of light.  
70 47% of European Jews worry about becoming a victim of an antisemitic verbal insult or harassment and 40% 
about being physically attacked in the next 12 months. (Second FRA Survey 2018) 
71 Second FRA Survey 2018. 
72 Second FRA Survey 2018. 

12 

 
 
 
 
 
 
 
                                                                                                                                                                                     
2.1.  Combating violent extremism and terrorism targeted against Jews 

The 2020-2025 Security Union strategy73 aims to ensure security for everyone in the EU, in 
line with EU values and principles. The 2020 Counter-Terrorism Agenda74 steps up the fight 
against terrorism and violent extremism and boosts the EU's resilience to terrorist threats.  

Under  the  2017  action  plan  to  support  the  protection  of  public  spaces  including  places  of 
worship75,  various  guidance  materials76,  tools  and  training77  were  developed  by  the 
Commission to support the work of Member States and faith communities in this area. The 
June 2021 Council Conclusions on the protection of public spaces78 underlined that places of 
worship demand specific protection measures.  

Cooperation  needs  to  be  further  strengthened  between  public  authorities  and  faith-based 
leaders and congregations, including Jewish ones, to improve the level of security awareness 
and  increase  community  engagement  and  resilience  through  trust-building  activities.  This 
will promote good practices and training in the protection of places of worship, which have 
increasingly  been  targeted  by  terrorist  attacks.  The  Commission  will  also  organise  a  high-
level conference on the protection of Jewish communities in the EU.  

The  Commission  will  continue  to  support  Members  States  and  Jewish  communities  in 
strengthening the protection of places of worship as part of its support for the protection of 
public spaces. The next call for proposals will be published in 2022 and will increase the total 
amount to EUR 24 million. The Commission, together with the European Union Intelligence 
and Situation Centre, will explore the possibility of regular EU assessments of the specific 
threats  to  Jewish  people,  communities  and  places  of  worship,  in  order  to  better 
understand, prevent, protect and respond to specific security risks.  

To  combat  violent  extremism,  it  is  essential  to  strengthen  our  democratic  societies  and 
increase  societal  resilience  to  extremist  ideologies.  Antisemitism  is  encountered  across  the 
to  violent  right-wing  extremism.  
spectrum  of  extremist 
Radicalisation,  recruitment  and  preparation  of  terrorist  attacks  often  take  place  online.  The 
Regulation  on  addressing  the  dissemination  of  terrorist  content  online79  tackles  this  by 
requiring online platforms to play a more active role in detecting such content and removing 
it within at most 1 hour.  

ideologies,  from 

jihadism 

Key actions:  

The Commission will: 

  Provide  EU  funding  in  support  of  projects  focused  on  the  protection  of  public 
spaces  and  places  of  worship  and  map,  in  cooperation  with  Member  States,  the 
existing national security and protection measures.  

  Continue  to  finance  research  and  innovation  activities,  primarily  via  the  Horizon 
Europe programme, aiming at understanding the contemporary radicalisation trends, 
as well as the means and patterns to effectively prevent and respond to them.  

  Step  up  its  operational  support  for  Member  States  and  Jewish  communities  by 
providing  training  on  security  measures.  This  will  include  EU  protective  security 

73 COM(2020) 605 final. 
74 COM(2020) 795 final. 
75 COM(2017) 612 final. 
76 Guideline - Building Perimeter Protection, JRC, 2020.  
77 The Commission offers a yearly autumn school on the protection of public spaces for participants of religious 
communities.   
78 Council Conclusions on the Protection of Public Spaces, 7 June 2021.  
79 Regulation (EU) 2021/784.  

13 

 
 
                                                           
 

advisors’ visits to Member States to set up a network of trainers on the protection of 
places of worship. 
Identify through the Radicalisation Awareness Network the specific relevance and 
implications  of  antisemitism  in  its  work  on  preventing  and  countering  violent 
extremism.   

  Closely cooperate with Europol, including its EU Internet Referral Unit, to combat 
online  antisemitic  terrorism  and  violent  extremism,  by  taking  action  against  groups 
and 
swift 
implementation of the terrorist content online Regulation. 

terrorist  content  online  and 

individuals  spreading 

to  ensure 

  Support  the  commemoration  of  victims  of  terrorist  attacks,  including  through 

digital victims’ wall.  

Member States are encouraged to: 

  Adopt  the  necessary  measures  to  ensure  the  security  of  Jewish  premises  and 
provide  sufficient  financial  or  other  support,  including  with  the  support  of  the  EU 
Internal Security Fund-Police national annual programmes. 
Integrate  and  implement  EU  tools  and  guidance80  on  protection  of  places  of 
worship as part of their national strategies on antisemitism. 

 

  Make  use  of  Europol’s  support  regarding  counter-terrorism  activities,  both 
online  and  offline,  and  related  investigations,  including  those  linked  to  racism, 
xenophobia and antisemitism. 

2.2. 

Fostering Jewish life and freedom of religion or belief 

Jewish  life  is  part  of  the  EU’s  diversity.  Jews  can  be  secular,  liberal,  reform,  agnostic, 
orthodox or ultra-orthodox; they may be Ashkenazi or Sephardi; they may have roots in the 
former  Soviet  Union,  the  Middle  East,  Central  Asia,  Africa  and  elsewhere.  Many  Jews  are 
part  of  mixed  families,  further  increasing  their  diversity  of  origins  and  beliefs81.  However, 
despite  the  long-standing  presence  of  Jews  in  Europe,  people  have  scant  knowledge  of 
Jewish  life  and  Judaism.  Only  3%  of  Europeans  feel  ‘very  well  informed'  about  Jewish 
history,  customs  and  practices,  while  68%  say  they  are  ‘not  informed'82.  To  dismantle 
prejudices  and  to  achieve  full  recognition  of  Jewish  life  as  part  of  Europe’s  society, 
awareness  and  knowledge  of  Jewish  history  and  culture  need  to  be  increased  among  the 
general public83.  

Jewish  people  express  their  Jewishness  through  specific  cultural,  traditional  and  religious 
practices,  recalling  their  history  and  teaching  lessons  for  future  generations.  One  of  these 
practices is the spring festival TuBishvat (New Year of Trees), a Jewish holiday dedicated to 
the preservation of nature on which trees are planted in celebration.  

Shechita, the kosher slaughtering84 of animals, is another example. In its judgment on ritual 
slaughtering of December 2020, the Court of Justice of the EU (CJEU)85, acknowledged that 

80 E.g. the vulnerability assessment tool and the EU Quick Guide to support the protection of places of worship. 
81  Jews  in  Europe  at  the  turn  of  the  millennium:  population  trends  and  estimates  by  Sergio  DellaPergola  and 
Daniel Staetsky, European Jewish Demography Unit/JPR, 2020.  
82 Eurobarometer 484: Perceptions of antisemitism, January 2019  
83  For  82%  of  Jewish  people  in  the  EU  a  prohibition  of  circumcision  would  be  a  problem  and  for  69%  a 
prohibition of traditional slaughter would be a problem (Second FRA Survey 2018). 
84 Traditional slaughter (Shechita) is the practice of kosher slaughtering of animals in the context of a prescribed 
practice for food-production purposes. For 69% of Jews prohibition of traditional slaughter would be a problem 
(Second FRA Survey 2018). 
85 Case C-336/19; Centraal Israëlitisch Consistorie van België and Others, 17 December 2020. 

14 

 
 
                                                           
Member  States  may  adopt  different  rules  based  on  the  domestic  context,  while  ensuring 
respect  of  Article  10(1)  of  the  Charter86,  by  striking  a  fair  balance  between  respect  for  the 
freedom to manifest religion and the protection of animal welfare87.  

Jewish  life  can  flourish  only  within  an  inclusive  society,  building  on  strong  and  trustful 
relations with  other  communities, including  newcomers, in  particular  at  local  level.  Culture 
can play an important role in developing an inclusive society. From music to cinema and the 
performing art, the cultural sector is a powerful force for promoting inclusion and fighting all 
forms  of  discrimination.  The  Commission  supports  Jewish  culture  and  art  through  EU 
funding programmes, such as the Creative Europe programme, seeking to combat stereotypes 
- including about Jewish people - in European society.  

Sports  and  the  media  also  have  an  important  role  to  play  in  fostering  inclusion.  In 
football,  some  national  federations  and  clubs  are  already  addressing  antisemitic  behaviours 
and  incidents.  The  Commission  will  liaise  closely  with  civil  society  initiatives  and  other 
relevant  actors  to  strengthen  the  fight  against  antisemitism  and  racism  in  football  in  the 
upcoming cooperation arrangement with UEFA (2022-2024) and to address antisemitism in 
sports in general in cooperation with other partner organisations, including via social media 
campaigns. Stereotypes also occur in the media. While respecting the freedom of the press, 
the  Commission  will  support  training  for  journalists  on  recognising  all  forms  of 
antisemitism and uncovering antisemitic biases in reporting. 

Key actions:  

The Commission will: 

 

Increase  knowledge  and  understanding  about  Jewish  life  among  the  general  public 
through  an  awareness-raising  campaign 
in  close  cooperation  with  Jewish 
communities,  including  through  intercultural  and  interreligious  dialogue  and 
activities. 

  Foster  links  between  the  Jewish  tradition  of  planting  trees  on  the  holiday  of 
TuBishvat,  including  by  school  children,  and  the  EU  pledge  to  plant  3  billion 
additional trees under the biodiversity and forest strategy for 2030, thereby raising 
mutual awareness and visibility88. 

  Facilitate,  the  exchange  of  practices  between  public  authorities  and  Jewish  and 
Muslim  communities  regarding  slaughter  based  on  religious  traditions,  drawing  on 
the experience of international organisations such as the UN, OSCE-ODIHR and the 
Council of Europe. 

  Take action to combat antisemitism and foster Jewish life at regional and local level, 
including  by  mapping  and  developing  a  guide  of  good  practices  and  training  for 
organisations that operate at regional and local levels.  

  Support the exchange through the European Integration Network of good practices 
on  informing  migrants  on  EU  values,  including  on  combating  antisemitism,  for 
example by working with migrants as ambassadors for EU values. 

Member States are encouraged to: 

86  Art.  10  (1):  ‘Everyone  has  the  right  to  freedom  of  expression.  This  right  shall  include  freedom  to  hold 
opinions and to receive and impart information and ideas without interference by public authority and regardless 
of frontiers.’  
87 Paragraph 71 of the judgment. Under Council Regulation (EC) No 1099/2009, traditional slaughter is allowed 
to the  extent required for the needs of the concerned religious communities, and stricter rules by the Member 
States need to be properly justified. 
88 COM(2020)380 final.  

15 

 
 
                                                           
  Ensure  through  policy  and  legal  measures  that  religious  groups  or  communities, 
including  Jews,  can  live  their  lives  in  accordance  with  their  religious  and  cultural 
traditions. 

  Raise  awareness  among  the  general  public  about  Jewish  life  and  traditions, 
including  by  publicly  marking  days  relevant  for  Jewish  people,  and  by  funding 
projects and conducting campaigns. 

2.3.  Safeguarding Jewish heritage 

Jewish cultural heritage is an integral part of European culture. The extermination of Jewish 
communities  during  the  Holocaust  changed  the  face  of  Europe  and  left  many  buildings, 
cemeteries and other Jewish heritage sites unattended or unused. This ‘orphaned heritage’ is 
now often in poor condition or in danger of deterioration.  

The European framework for action on cultural heritage89 includes a specific measure on 
Jewish  cemeteries  in  Europe.  Europe’s  cultural  heritage,  including  Jewish  heritage,  is 
supported  by  a  range  of  EU  policies,  programmes  and  funding,  notably  Creative  Europe, 
Horizon  Europe,  Erasmus+,  CERV  and    cohesion  policy  funds.  The  Council  of  Europe 
Framework  Convention  on  the  Value  of  Cultural  Heritage  for  Society  (Faro  Convention)90 
emphasises the important aspects of heritage as they relate to human rights and democracy, 
and  promotes  a  wider  understanding  of  heritage  and  its  relationship  to  communities  and 
society91. The Terezín Declaration on Holocaust Era  Assets and Related Issues92, signed by 
all  Member  States  in  200993,  outlines  several  measures  towards  restorative  justice  for  the 
victims  of  Nazi  persecution  and  their  descendants.  In  the  context  of  DiscoverEU94,  young 
travellers  are  encouraged to  visit  cultural  heritage sites  to  strengthen their awareness  of the 
Europe’s cultural heritage. 

Key actions:  

The Commission will: 

 

Invite  cities  to  address  the  history  of  their  minorities,  including  Jewish  community 
history, when applying for the title of European Capital of Culture. 

  Use the European Heritage Days, a joint initiative of the Council of Europe and the 

Commission, to draw attention to Jewish heritage across Europe. 

  Pursue the Jewish digital cultural recovery project95, which  aims at developing a 
comprehensive  database  of  information  on  Jewish-owned  cultural  assets  that  were 
plundered  by  the  Nazis,  collecting  good  practices  and  proposing  awareness-raising 
activities. 

  Launch  a  preparatory  action  on  protecting  the  Jewish  cemeteries  of  Europe, 
capitalising  on  the  results  of  two  previous  European  Parliament  pilot  projects96  on 
this topic and fostering links between groups interested in the preservation of Jewish 

89 European framework for action on cultural heritage.  
90 The  Faro Convention  was adopted by the  Committee of  Ministers of the  Council of Europe on 13 October 
2005, opened for signature to Member States on 27 October 2005, and entered into force on 1 June 2011. 
91 Resolution 2309 (2019). 
92 Terezín Declaration 2009. 
93 See also: A Joint Declaration of the European Commission and the Czech EU Presidency, signed on 29 June 
2009.  
94 https://europa.eu/youth/discovereu_en 
95 The database produced during the phase I of the project is available here: https://pilot-demo.jdcrp.org 
96 https://www.esjf-surveys.org/. 

16 

 
 
                                                           
burial sites. 

  Promote visits of young people travelling around Europe to Jewish heritage sites in 

the context of DiscoverEU. 

Member States are encouraged to: 

  Encourage and support European Heritage Days, by highlighting Jewish heritage in 
the  national  context,  including  inside  national  museums,  state-sponsored  festivals 
and the arts. 

  Support  the  maintenance  and  safeguarding  of  Jewish  heritage  under  the  Faro 

Convention. 

  Use  EU  funding  opportunities,  including  the  cohesion  policy  fund,  to  safeguard 

Jewish heritage.  

  Implement the Terezín Declaration of 2009. 

III.  EDUCATION, RESEARCH AND REMEMBRANCE  

‘How wonderful it is that nobody need wait a single moment before starting to improve the 
world.’  

― Anne Frank 

To shape Europe’s future, people need to  understand its past.  Knowledge about  Jewish life 
and antisemitism in Europe over the centuries and the impact of the Holocaust on the Jewish 
people and the European continent are essential to understand antisemitism today and prevent 
such  atrocities  from  ever  happening  again.  Education  and  research  on  Jewish  life, 
antisemitism and the Holocaust are crucial in this regard and should not only focus on the 
Holocaust, but also on the Jewish contribution to European society.  

The European Education Area97 and the new European Research Area98 communications 
address issues of inclusion, equality and non-discrimination. The Commission also proposed 
that equal  opportunities be a value shared by Member States in  research and innovation,  in 
the context of the upcoming Pact for Research and Innovation. 

The  Digital  education  action  plan  (2021-2027)  focuses  on  the  importance  of  tackling 
disinformation  and  promoting  digital  literacy  in  education  and  training  through  the 
development of guidelines for teacher and educators with a view to fostering critical thinking, 
tolerance  and  promoting  online  empowerment.  Furthermore, 
the  UNESCO  and 
OSCE/ODIHR  have  repeatedly  called  for  the  promotion  of  educational  programmes  in  the 
participating States, including EU Member States, to raise awareness among young people of 
the value of mutual  respect  and understanding.  UNESCO and OSCE/ODIHR commitments 
encourage  education  on  antisemitism  that  ensures  a  systematic  approach,  including  the 
development and use of curricula to address contemporary forms of antisemitism99. 

3.1.  Education and research on antisemitism and Jewish life  

Every child should learn about  Jewish life and antisemitism  as an integral  part of Europe’s 
history.  Education  can  strengthen  young  people’s  resilience  to  antisemitic  ideas  and 
ideologies  and  to  all  forms  of  intolerance  and  discrimination.  Opportunities  to  engage  with 

97 COM(2020) 625 final. 
98 COM(2020) 628 final.  
99  ODIHR  has  developed  a  collection  of  resources  and  programmes  to  raise  awareness  about  discrimination, 
hate crimes, antisemitism and other forms of intolerance, including against Muslims, Christians and members of 
other religions or beliefs. More information on the OSCE/ODIHR’s website. 

17 

 
 
 
 
                                                           
Jewish communities and their members as well as with other minorities and religious groups 
can  also  foster  mutual  understanding.  The  European  Year  of  Youth  2022  will  offer  new 
opportunities  in  this  regard.  Schools  and  campuses  must  be  safe  places  for  all.  Teachers 
should be empowered to address antisemitism, the Holocaust, Jewish life and history, also in 
multicultural classrooms.   

The Commission has been supporting research on antisemitism, Jewish life and the Holocaust 
through Horizon 2020 and the Europe for Citizens programme, and it will continue to do so 
under their successors, Horizon Europe100 and the CERV programmes. However, university 
chairs on antisemitism and Jewish studies in the EU are only loosely connected. There is no 
overarching research hub. Research efforts on all aspects of antisemitism and Jewish life in 
Europe should be increased to complement Holocaust research.  

The  EU  has  taken  the  lead  in  ensuring  comparable  data  on  antisemitic  experiences  and 
perceptions.  The  FRA  survey  on  Jewish  people’s  experiences  of  antisemitism  will  be 
repeated in 2023 and at regular intervals thereafter. The Eurobarometer on perceptions of 
antisemitism  among  the  general  public  will  be  conducted  for  the  second  time  in  2024  and 
then  every  5  years.  To  further  facilitate  evidence  based  policymaking,  more  research  into 
antisemitic prejudices among the general population is needed. 

Key actions:  

The Commission will: 

  Foster,  in  cooperation  with  the  Member  States  and  the  research  community,  the 
creation of a European research hub on contemporary antisemitism and Jewish 
life  and  culture  fostering  multidisciplinary  research  across  Europe  and  fund 
research  through  Horizon  Europe,  on  various  structural  forms  of  racism  and 
xenophobia, taking into account national specificities and intersectionality.  

  Support  the  development  of  a  network  of  Young  European  Ambassadors  to 
promote  Holocaust  remembrance  in  schools,  universities  and  vocational  and 
education training institutions.  

  Fund an EU-wide survey on antisemitic prejudices in the general population of all 

Member States, including among young people.  

  Support  Member States  in  stepping up their efforts to  promote common values and 
inclusive  education  and  implement  the  Council  Recommendation  on  promoting 
common  values,  inclusive  education,  and  the  European  dimension  of  teaching101 
through  the  new  Working  Group  on  equality  and  values  in  education  and 
training, including on Jewish life and traditions.  

  Support  activities,  through  Erasmus+  and  the  European  Solidarity  Corps,  aimed  at 
promoting  European  values  and  combating  all  forms  of  discrimination  and 
intolerance,  including  antisemitism,  by  fostering  civic  education  and  youth 
participation in democratic life.  

  Support  educational  professionals’  training  in  cooperation  with  UNESCO  and 
OSCE-ODIHR,  based  on  their  guidance  on  ‘Addressing  antisemitism  through 
education’, respectively for policymakers and teacher-training institutions. 

  Support Member States, through the Technical Support Instrument, in designing and 
implementing  reforms  in  schools  aimed  at  tackling  discrimination  in  general,  and 
antisemitism in particular.  

100 For instance, the first calls of Horizon Europe will fund research on various structural forms of racism and 
xenophobia, taking into account national specificities and intersectionality. 
101 Council Recommendation (2018/C 195/01), 22 May 2018.  

18 

 
 
                                                           
Member States are encouraged to: 

  Promote  knowledge  of  Jewish  life,  antisemitism  and  the  Holocaust  through 
education  and  research,  and  encourage  exchanges  with  local  communities,  where 
possible. 

  Report  and  record  incidents  of  antisemitic  discrimination  in  schools  and  support 

school directors and teachers in addressing them. 

3.2.  Holocaust education, research and remembrance  

The  Holocaust  is  a  defining  legacy  of  European  history,  during  which  six  million  Jewish 
children,  women  and  men  were  murdered.  While  Jews  were  the  priority  target  of  the  Nazi 
regime, other groups were also persecuted, including Roma, persons with disabilities, Slavs, 
Jehovah’s witnesses, LGBTIQ people and political dissidents.  

For  decades,  Holocaust  survivors  have  shared  their  stories  as  part  of  the  remembrance 
tradition.  Today  however,  all  of  the  survivors  have  grown  old  or  passed  away.  Those  who 
were  adults  during  World  War  II  and  had  the  clearest  memories  of  the  Holocaust,  are  no 
longer  with  us.  Preserving  and  honouring  their  legacy,  making  sure  their  stories  are  not 
forgotten  and  are  retold  accurately,  and  finding  new  forms  of  remembrance  are  challenges 
and duties for this generation and future generations of Europeans.  

Currently,  one  European  in  20  has  never  heard  of  the  Holocaust,  and  less  than  half  of 
Europeans  think  it  is  sufficiently  taught  in  schools102.  Education  and  research  play  a  key 
role in raising awareness of the Holocaust.  

Free, open and independent research is a core value of democracies. Research on all aspects 
of  the  Holocaust  is  also  important  to  increase  understanding  of  how  the  Holocaust  was 
possible  in  Europe.  With  EUR  25  million  (2010-2024)103,  the  European  Holocaust 
Research  Infrastructure  (EHRI)104  -  the  largest  EU-funded  research  initiative  on  the 
Holocaust  globally  -  connects  the  research  community  by  making  available,  across  Europe 
and beyond, dispersed sources related to the Holocaust. In this regard, EHRI will expand its 
research focus on manifestations of antisemitism that led to the Holocaust. 

New  ways  of  raising  awareness  must  also  be  developed,  in  particular  in  a  local  context, 
where  places  ‘where  the  Holocaust  happened’  –  from  synagogues  to  Jewish  cultural  sites, 
from hiding places to shooting grounds – are often not visible. This can include  a network 
enabling school students, practitioners and the general public to trace the continuity of 
Jewish  presence  in  Europe  over  the  centuries  and  facilitate  local  initiatives  to  visit  and 
restore cultural and memorial sites.  

The Commission will also foster public debate (online or town hall) on the significance of 
the  Holocaust  in  a  diverse  EU  and  support  the  creation  of  a  participatory  European 
Holocaust Monument in Brussels, linked with pieces of arts in EU capitals.  

Key actions:  

The Commission will: 

  Support, also financially, the creation of a network of sites ‘where the Holocaust 

102 Two-thirds of Europeans are convinced that commemorating the Holocaust helps ensure that such atrocities 
will never happen again. (CNN Poll: Anti-Semitism in Europe – A shadow over Europe, 2018.)  
103  EHRI,  funded  from  EU  Research  &  Innovation  Framework  Programmes,  is  currently  in  the  process  of 
becoming a long-term European Infrastructure based on joint funding from Member States.  
104 https://www.ehri-project.eu/. 

19 

 
 
                                                           
happened’, in cooperation with local communities. 

  Make  project  funding  available  through  the  Remembrance  strand  of  the  CERV 
programme  to  commemorate  the  Holocaust  also  through  the  digitalisations  of 
archives and testimonies of Holocaust survivors.  

  Continue  its  presence  in  and  support  for  Holocaust  commemoration  days  and 
events,  at  both  EU  level  and  national  level,  in  cooperation  with  the  Commission 
Representations in Member States and EU delegations.  

Member States are encouraged to: 

  Commemorate  the  Holocaust  publicly  in  close  cooperation  with  the  Jewish 

community, including with the involvement of the national parliaments.  

  Ensure that the universality of the Holocaust is reflected in education and assess 
the  effectiveness  of  how  it  is  taught,  including  in  a  multi-ethnic  and  diverse 
classroom. 

  Become  active  partners  in  the  implementation  of  the  EHRI  infrastructure, 

including through financial contributions. 

3.3.  Holocaust denial, distortion and trivialisation 

Manifestations of Holocaust denial, distortion and trivialisation are unfortunately increasing. 
53% of Europeans perceive Holocaust denial as being a problem in their country105. 62% of 
Jews have seen or heard non-Jewish people suggest that the Holocaust is a myth or has been 
exaggerated, at least occasionally106. Holocaust denial, distortion and trivialisation are often 
used to feed hatred against Jewish people and in an attempt to rewrite European and Jewish 
history.  Their  corrosive  effects  for  collective  historic  memory  and  for  the  resilience  and 
cohesion of our democratic societies should not be underestimated and need to be specifically 
addressed.  Hate  speech  relating  to  the  condoning,  denial  or  gross  trivialisation  of  the 
Holocaust  is  prohibited  under  the  Framework  Decision  on  combating  racism  and 
xenophobia107.  

To  educate  and  raise  awareness,  the  Commission  cooperates  with  the  IHRA  through  its 
Permanent  International  Partnership  using  the  IHRA  definition  of  Holocaust  denial  and 
distortion108,  to  combat  this  phenomenon.  An  example  is  the  awareness-raising  campaign 
#ProtectTheFacts109, which focuses on countering Holocaust distortion. In partnership with 
the IHRA and UNESCO, the Commission will further develop other initiatives based on the 
‘IHRA recommendation on recognising and Countering Holocaust distortion’110.  

Key actions:  

The Commission will: 

  Promote  the  use  of  the  IHRA  definition  of  Holocaust  denial  and  distortion  for 

education and for awareness-raising purposes. 

  Develop  a  handbook  on  best  practices  in  fighting  Holocaust  denial,  distortion 

and trivialisation.  

  Support and strengthen social media campaigns together with UNESCO, the IHRA 

105 Eurobarometer 484: Perceptions of antisemitism, January 2019.  
106 Second FRA Survey 2018. 
107 Council Framework Decision 2008/913/JHA of 28 November 2008. 
108 IHRA working definition of Holocaust denial and distortion.   
109 https://ec.europa.eu/newsroom/just/items/700272/default; www.againstholocaustdistortion.org. 
110 IHRA ‘Recommendation on Recognising and Countering Holocaust Distortion’. 

20 

 
 
                                                           
and  other  international  partners  and  civil  society  groups  to  raise  awareness  of 
Holocaust denial and distortion and actively combat it.  

Member States are encouraged to: 

  Actively engage in awareness campaigns against Holocaust denial, distortion and 

trivialisation. 

IV. 

LEADING THE GLOBAL FIGHT AGAINST ANTISEMITISM 

‘The world as we have created it is a process of our thinking. It cannot be changed without 
changing our thinking.’ 

― Albert Einstein 

The  Jewish  population  worldwide  is  estimated  to  be  15.2  million111.  Of  this,  45%  or  6.9 
million live in Israel. With about 6 million, the United States is home to the second-largest 
community  of  Jewish  people.  In  addition  to  the  1.5  million  Jews  in  the  EU,  the  remaining 
Jewish populations live scattered around the globe on all inhabited continents112. 

Antisemitic  prejudices  are  widespread  across  the  world.  According  to  the  Anti-Defamation 
League  research113  on  attitudes  and  opinions  towards  Jews,  74%  of  people  in  the  Middle 
East/North  Africa  region  harbour  antisemitic  attitudes,  notwithstanding  that  some  positive 
signals are also to register, such as the recent normalisation of relations between Israel and a 
number of countries in the region114 115. In Western Europe116 the figure stands at 24% and in 
Eastern  Europe  at  34%,  while  in  the  Americas  it  is  19%,  in  Asia  22%  and  in  Sub-Saharan 
Africa  23%.  The  situation  and  size  of  Jewish  communities  vary  considerably  between 
countries. Jews are at risk and experience antisemitic attacks and incidents around the globe. 
Antisemitic prejudices can also be found in countries without Jewish communities.  

In this context, the European Commission reaffirms its firm and unequivocal commitment to 
the global fight antisemitism. Any form of antisemitism, incitement to hatred or violence is 
unacceptable  and  incompatible  with  the  values  and  aims  of  the  European  Union  and  its 
Member  States.  It  must  be  addressed  through  firm  action,  both  at  European  and  national 
level.  These  principles  are  non-negotiable  for  the  European  Commission.  In  light  of  the 
above,  mainstreaming  the  prevention  and  countering  of  antisemitism  in  all  its  forms  and 
across all policy areas is essential.  

4.1.  Use all instruments to address antisemitism through the EU’s external action 

The EU is founded on a strong commitment to promote and protect human rights, democracy 
and  the  rule  of  law  worldwide.  This  commitment  underpins  the  EU’s  enlargement  and 
neighbourhood policies and its policies towards other non-EU countries, as well as its work 
in  international  organisations.  All  countries  should  protect  the  right  of  everyone,  including 
Jewish people, to have, not have or change their religion or belief, to manifest publicly their 

111 https://www.jewishagency.org/jewish-population-5782/. 
112  World  Jewish  Population  2019,  by  Sergio  DellaPergola,  in  Arnold  Dashefsky  and  Ira  M.  Sheskin  (eds.), 
American Jewish Year Book 2019, The Annual Record of the North American Jewish Communities since 1899;  
World Jewish Population on Eve of New Year – 14.7 Million, Haaretz. 
113 https://global100.adl.org/map. 
114 The United Arab Emirates, Bahrain and Sudan respectively (2020), followed by Morocco (January 2021).  
115 The start of the construction of a synagogue in the United Arab Emirates is another good example. 
116 It should be noted that in the Anti-Defamation League research, no average data on the EU is included; also, 
the category ‘Western Europe’ does not include all EU countries. For data per Member State, see the website. 

21 

 
 
 
 
 
                                                           
religion or belief, and to be free from discrimination, persecution or violence on  grounds of 
religion or belief, or based on their racial or ethnic origin. The 2020-2024 EU action plan on 
human rights and democracy sets the level of ambition and establishes the priorities of the 
EU  and  its  Member  States  in  this  field,  in  relations  with  non-EU  countries.  The  2013 
Guidelines on freedom of religion or belief outside the EU117 and the 2019 Guidelines on 
non-discrimination in external action118 spell out tools to be used by the EU’s external arm 
to  address  violations  of  freedom  of  religion  or  belief  and  combat  discrimination,  including 
against Jewish people119.  

The  EU  will  use  all  available  tools  to  call  on  partner  countries  to  actively  combat 
antisemitism,  taking  into  account  the  IHRA  definition  of  antisemitism120,  in  political  and 
human  rights  dialogues  and  in  its  broader  cooperation  with  partner  countries.  This  is 
supported  through  thematic  and  geographic  programmes  and  EU’s  neighbourhood  and 
enlargement policies, including in the stabilisation and association processes.  

The  EU  will  actively  cooperate  with  international  organisations,  in  particular  the  United 
Nations,  the  Council  of  Europe  and  the  OSCE,  as  well  as  with  regional  organisations121  in 
joint actions to fight discrimination and antisemitism. The EU will step up actions in the 
education  sector  and  continue  to  promote  full  compliance  of  education  material  with 
UNESCO standards of peace, tolerance, coexistence and non-violence, in its cooperation on 
education  with  partner  countries.  Any  material  that  goes  against  them  risks  undermining 
peace and co-existence and has no place in textbooks or classrooms.  

The  EU  Special  Representative  for  Human  Rights  and  the  Special  Envoy  for  Freedom  of 
Religion  or  Belief  outside  the  EU  will  continue  to  systematically  address  antisemitism  in 
their  work.  In  addition,  the  EU  will  strengthen  the  global  cooperation  of  special  envoys 
and coordinators on combating antisemitism.  

is  a  key  partner  for 

Israel 
the global  fight 
the  European  Union, 
against antisemitism.  The  EU  will  seek  to  further  reinforce  the  EU-Israel  High-Level 
Seminar on combating racism, xenophobia and antisemitism, co-organised annually, with a 
focus on operational follow-up.  

including 

in 

Actions  aiming  to  combat  antisemitism  can  be  supported  through  the  NDICI122  Global 
Europe  thematic  programme  on  human  rights  and  democracy  initiatives  addressing  non-
discrimination.  The  EU  will  include  as  part  of  its  training  on  human  rights  for  staff  at 
delegations and headquarters specific sessions on freedom of religion or belief, including on 
combating antisemitism.  

Key actions: 

The Commission and the High Representative will: 

  Promote 

including 
antisemitism in political  and human rights dialogues  and in  broader cooperation 

religious  and  ethnic  discrimination, 

fight  against 

the 

117 https://eeas.europa.eu/sites/default/files/06_hr_guidelines_religion_en.pdf.  
118 https://eeas.europa.eu/sites/default/files/11_hr_guidelines_external_action_en.pdf. 
119 In addition, the Commission staff working document on A Human Rights-Based Approach to Development 
guides EU staff on integrating non-discrimination on all grounds in the projects cycle. Adopted on 30.6.2021. 
120  The  IHRA  definition  was  also  endorsed  or  adopted  by  non-EU  countries:  Albania,  Australia,  Argentina, 
Bahrain, Canada, Guatemala, Israel, Moldova, North Macedonia, Serbia, South Korea, United Kingdom, United 
States, and Uruguay.  
121 Including the Organisation of American States, which in June 2021 created the position of a Special Envoy to 
combat antisemitism) and the Organisation of Islamic Cooperation. 
122 Neighbourhood, Development and International Cooperation Instrument. 

22 

 
 
 
                                                           
with partner countries outside the EU. 

  Ensure training on fundamental rights and undertaking of intercultural dialogue for 

relevant actors, including teachers from outside the EU. 

  Ensure that EU external funds, in compliance with existing measures, may not be 
misallocated  to  activities  that  incite  hatred  and  violence,  including  against  Jewish 
people123. 

  Step  up  engagement  in  the  education  sector  to  promote  full  compliance  of 
education  material  with  UNESCO  standards  of  peace,  tolerance,  coexistence  and 
non-violence, as appropriate. 

  Strengthen  engagement  with  Jewish  civil  society  and  religious  organisations  to 
address antisemitic acts and limitations on freedom of religion or belief, through the 
network of EU delegations and headquarters.  

  Consider  new  EU-funded  projects  in  the  EU’s  neighbourhood  and  beyond  to 

prevent and counter antisemitism and foster Jewish life. 

  Encourage the EU delegations to include reporting of antisemitic incidents in non-

EU countries, in their regular political reporting.  

  Reinforce the EU-Israel seminar to further strengthen EU-Israel cooperation in the 

fight against antisemitism. 

Member States are encouraged to: 

  Closely cooperate at EU level to jointly address antisemitism through international 

 

organisations. 
Incorporate  the  fight  against  antisemitism  into  all  their  human  rights  strategies 
and policies, taking into account the IHRA definition of antisemitism. 

  Support  projects  and  organisations  combating  antisemitism  and  fostering  Jewish 

life worldwide. 

4.2.  Safeguarding Jewish cultural heritage and commemorating the Holocaust  

Jewish cultural heritage is visible in many places in the Middle East, Asia and other places 
around the world, bearing witness to the historical presence of Jewish communities in those 
regions. Large parts of this heritage are orphaned as Jewish communities no longer live there. 
Jewish  cultural  heritage,  like  all  heritage,  is  a  shared  and  important  expression  of  cultural 
diversity  and  deserves  dedicated  protection  worldwide.  The  EU  together  with  the  Member 
States has a key role to play in helping local, regional and international partners to safeguard 
cultural  heritage  through  training,  skills  development  and  knowledge  transfer  activities  as 
well  as  reinforced  cooperation124.  Intercultural  and  interfaith  dialogue  will  be  supported 
by  the  EU  to  reinforce  cultural  heritage  protections  through  work  on  shared  history  and 
memory,  building  the  basis  for  communities  to  live  together  peacefully  in  a  multicultural 
context. The EU will continue to promote Holocaust remembrance at international level and 
to  publicly  call  out  Holocaust  denial,  distortion  and  trivialisation  in  non-EU  countries, 
including in international fora. 

Key actions:  

123 In line with Council Framework Decision 2008/913/JHA of 28 November 2008 on combating certain forms 
and expressions of racism and xenophobia by means of criminal law, Article 136 of the Financial Regulation, 
complemented in 2018 by additional operational ‘guidelines to prevent incitement to hatred and violence’. 
124 The communication Towards an EU strategy for international cultural relations and the Council Conclusions 
on EU strategic approach to cultural heritage in conflicts and crises, and its dedicated Concept, form the basis of 
the EU’s work. 

23 

 
 
                                                           
The Commission and the High Representative will: 

  Promote  and  support  the  safeguarding,  rehabilitation,  and  revitalisation  of  all 
heritage, tangible and intangible, including Jewish heritage, in line with its policies 
for international cultural relations and cultural heritage. 
 
Integrate intercultural and interfaith dialogue in cultural heritage interventions.  
  Seek  opportunities  to  include  maintenance  of  Jewish  heritage  in  programming  in 

the neighbourhood and beyond.  

  Continue to organise and participate in high-level events around the remembrance of 

Shoah victims (commemorations, Holocaust Remembrance Day). 

Member States are encouraged to: 

  Contribute, together with the EU in the UN context, to the worldwide safeguarding 
of  cultural  heritage,  including  Jewish  heritage,  in  line  with  the  Council 
Conclusions on EU strategic approach to cultural heritage in conflicts and crises. 
  Mark  International  Holocaust  Remembrance  Day  in  cooperation  with  EU 
delegations,  through  their  embassies  in  third  countries  and  in  international 
organisations. 

V. 

DELIVERING ON THE STRATEGY  

Combating  antisemitism  in  the  EU  is  a  shared  responsibility;  it  requires  joint  efforts  and 
action  at  every  level.  EU  institutions  and  agencies,  Member  States,  international 
organisations,  Jewish  organisations  and  communities,  and  human  rights  and  civil  society 
actors all have a role to play in achieving the strategy’s objectives. The Commission invites 
the  European  Parliament,  the  Council  and  the  Member  States  to  work  together  in 
implementing this strategy. The Commission calls on the Committee of the Regions and the 
European  Economic  and  Social  Committee  to  promote  dialogue  with  local  and  regional 
authorities and civil society, including social partners, on how to advance towards a European 
society free of antisemitism.  

The Commission  will actively support the implementation  of the proposed policy measures 
through various funding  opportunities and invites Member States, Jewish organisations and 
communities, as well the civil society actors, to make use of EU programmes.  

implemented  over 

the  period  2021-2030.  Comprehensive 
The  strategy  will  be 
implementation reports will be published in 2024 and 2029. These will be based on the input 
from Member States, also with regard to the implementation of their national strategies and 
policies. With the support of the EU Fundamental Rights Agency, these reports will include 
monitoring  of  progress  at  national  level,  taking  into  account  the  commitments  made  in  the 
Council Declarations on antisemitism of 2018 and 2020.  

CONCLUSION  

This strategy is our commitment to a future for Jewish life in Europe and beyond. It marks a 
step  change  in  the  Commission’s  political  engagement  for  a  European  Union  free  from 
antisemitism and any form of discrimination; for an open, inclusive and equal society in the 
EU. It reflects Europe’s commitment to keep the memory of the Holocaust alive, even after 
the last Holocaust survivors have passed away.  

Curbing the age-old scourge of antisemitism must be an enduring effort. As Shoah survivor 
Primo  Levi  said  ‘It  happened,  therefore  it  can  happen  again’.  The  dangerous  spike  in 
antisemitic  attacks  is  all  the  reminder  needed  to  show  that  there  can  be  no  let-up  in  our 

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relentless  collective  efforts  to  combat  antisemitism.  Beyond  this,  Jewish  life  deserves  not 
only to be protected but to be allowed to flourish in all its diversity.  

Europe can only prosper when its Jewish communities prosper too. 

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