This page provides information on the national frameworks to address hate crime in France. The information provided here should be viewed alongside data presented on France's hate crime report page.

Hate crime recording and data collection

All offences are given a criminal qualification code and label by police officers; each code and its label refer to a particular article of the criminal code.

Frontline police officers identify and record hate crimes based on the victim's perception and/or on objective facts and circumstances that indicate a bias motivation. Depending on the type of offence, up to five bias motivations can be recorded: religion, racism, xenophobia, sexism and homophobia. Police officers use a generic form to record hate crimes. However, they are trained to record hate crimes in line with the nature of the damage suffered. The criminal qualification codes and labels are entered into a national database that compiles statistics on hate crimes. To support this collection of judicial data by frontline officers, the Central Office for Combating Crimes against Humanity and Hate Crimes (OCLCH) developed a mobile phone app, available on law-enforcement duty cell phones, to properly record offences in the context of hate crime report.

The Ministry of the Interior is responsible for two data collection processes. All security forces are connected to a central registration system. Data on hate crimes can be extracted from this database using the criminal qualification code under which they have been recorded. Since 2008, data on anti-Semitic and anti-Muslim offences have also been manually collected from local field offices by central intelligence services. These data are shared and discussed with Jewish and Muslim civil society organizations.

The Ministerial Statistical Department for Internal Security (SSMSI) within the Ministry of the Interior is responsible for producing reliable criminal statistics, and publishes studies related to hate crime statistics on its Interstats website. Every year in March, SSMSI publishes a study on "racist, xenophobic or anti-religious attacks" that include both administrative data and victimization survey data. SSMSI also contributes to the annual report on racism, anti-Semitism and xenophobia of the National Consultative Commission on Human Rights (CNCDH).

The Ministry of Justice collects data from across the judiciary. The registration of data is subject to a rigorous quality assurance process based on a common codification called the "justice reference system". The process groups together all criminal offences and allows the data to be cross-referenced according to the number of cases (registered, prosecuted, sentenced), the type of motivation (homophobic, gender, racism, etc.), the type of offence and the type of criminal sanction. The Ministry's Statistic, Studies and Research Department (SSER) centralizes and uses statistical data from the Cassiopée information system (where criminal proceedings are registered by prosecutors' offices) and final convictions entered in the criminal records. These data are published in the Annual Report on Racism, Antisemitism and Xenophobia prepared by the National Consultative Commission on Human Rights (CNCDH). The SSMSI and the SSER are currently working together to match data from the Ministry of the Interior and the Ministry of Justice.

Since 2022, the SSMSI has been conducting a new annual victimization survey, entitled "Security Experiences and Perceptions" (VRS). The new survey builds on the objectives of the previous CVS survey. It is made up of two questionnaires: a basic questionnaire and a thematic questionnaire, each designed to explore a different theme annually. The sequence and content of the questions in the basic questionnaire make it possible to analyse the offences concerning the characteristics of the victim (skin colour, origin, religion, sex, sexual orientation, disability) to determine their discriminatory nature. In addition, special attention is paid to the thematic questionnaire to ensure it includes a section on discrimination. By directly questioning the population, this survey aims to reflect as accurately as possible the reality experienced in the territory. It is an essential complement to the data from administrative statistics. Moreover, since 2018, the SSMSI has been producing an annual statistical report that combines the statistics recorded by the national police and gendarmerie with the data collected first by the CVS survey and then by the VRS survey.

In addition, the 'FLAG!' civil society association launched a public application enabling victims and witnesses of incidents targeting LGBTI persons to make dated and geolocated anonymous reports. Once the report has been made, they are informed of the various options available to them (including filing a complaint, official reporting, helplines, etc.). All the reports are fed into a more accurate real-time mapping system, enabling public policies to be adapted on the basis of an annual report produced in partnership with the Inter-ministerial Delegation for Combating Racism, anti-Semitism and anti-LGBT Hatred (DILCRAH) and the SSMSI. 

In addition, the 'FLAG!' association launched a public application enabling victims and witnesses of incidents targeting LGBTI persons to make dated and geolocated anonymous reports. Once the report has been made, they are informed of the various options available to them (including filing a complaint, official reporting, helplines, etc.). All the reports are fed into a more accurate real-time mapping system, enabling public policies to be adapted on the basis of an annual report produced in partnership with the Inter-ministerial Delegation for Combating Racism, anti-Semitism and anti-LGBT Hatred (DILCRAH).

Hate crime victim support

The Ministry of Justice's public policy on victim support provides victims of all types of criminal offences with free, multidisciplinary support (legal, social and psychological), tailored to their individual needs. This support is provided as soon as possible after the offence has been committed and continues until the compensation process is complete, without interfering in the course of legal proceedings.

This support is primarily provided by local victim support associations, which are located throughout the country and funded by the Ministry of Justice. In 2024, the Ministry subsidised 187 local associations and around 20 national ones.

Under the Code of Criminal Procedure, the Ministry of Justice may approve victim support associations, certifying the quality of the assistance and support they provide. Approval is general when it concerns all offences, and specialized when it applies to domestic violence, sexual and gender-based violence. As of March 2024, 121 associations held general accreditation and 39 held specialized accreditation.

Accredited victim support associations have their own premises, but they also operate in places that fulfil a public service function, such as courts (victim support offices), justice centres and police stations.

A victim support office (BAV) is available in each of the 166 courts in France. These BAVs are responsible for informing victims and addressing any issues they encounter during criminal proceedings.

Justice centres are free, confidential, drop-in centres where professionals provide citizens with information, assistance and guidance in their legal proceedings. There are 2,981 justice centres covering the entire country.

A helpline (116 006) is also available to provide victims with immediate assistance and initial guidance.

The budget allocated to victim support has increased steadily since 2020.

Individual needs assessments are carried out by the police as soon as possible. The process takes into account the specific needs of hate crime victims, such as: limiting the number of victim interviews to prevent secondary victimization; ensuring that interviews are conducted by the same person and a person of the same gender as the victim; and holding interviews in specially adapted premises. If necessary, an in-depth assessment can be made by a victim support provider, which may recommend specific protection measures to the police, the prosecution or the court. The assessment can become part of the case file and is updated during criminal proceedings.

Standards on the sensitive and respectful treatment of victims by police are in place. Victims can complain about their treatment by law enforcement to the dedicated committees chaired by state representatives.

The police refer all victims of crime to the relevant support services by providing them with the contact details. Dedicated police officers handle referrals in hate crime cases. Referrals to specialized support services can also be made by prosecutors when imposing special protection measures. There are specially appointed prosecutors dealing with hate crime cases. Representatives of support service providers, law enforcement and the criminal justice system receive training on how to interview victims of crime. Guidance on handling hate crime cases is available.

To encourage hate crime reporting and strengthen victim support, the Central Office for Combating Crimes against Humanity and Hate crimes (OCLCH) has worked to provide enhanced educational content that can be accessed via the "My safety" application. The content aims to make it easier for victims to identify whether the acts in which they were targeted are likely to be classified as criminal offences.

Together with victims' associations, the OCLCH has also designed a guide for law enforcement officers on interviewing victims of hate crimes. The aim is to guide investigators managing victim interactions from the reception phase through to the end of the hearing.

In criminal proceedings, hate crime victims are granted the same rights as all victims of crime. These include access to the case file, the right to information and interpretation, access to a lawyer and to legal aid, and the ability to challenge decisions when they have the status of a civil party in the proceedings. Specialized lawyers are appointed by local bar associations to assist victims, provide them with legal representation and/or assist them in seeking compensation. CSOs supporting victims of hate crime are also allowed to join the proceedings. In some instances, however, vulnerable victims have encountered difficulties in filing a complaint and being involved in judicial proceedings.

Compensation to victims of crime are handled by the Guarantee Fund for Victims, a public service available to victims of terrorism, common law offences and traffic accidents caused by uninsured or unknown drivers. Compensation to the victim may also be imposed on the offender as part of sentencing.

Since April 2022, victims and witnesses of discrimination and hate crimes have access to an instant messaging service on the Digital Platform for Reporting Crimes Against Persons and Victim Support (PNAV). The purpose of this platform is to: (i) enable communication and information exchange between victims or witnesses of hate crime and the police or gendarmerie via an online chat function; (ii) inform the victims about their rights in criminal proceedings; (iii) direct the victims to relevant organizations providing assistance; (iv) facilitate access of victims and witnesses to the relevant police and gendarmerie units; and (v) report hate incidents to the relevant investigation services. The PNAV is a free and anonymous service available 24/7 run by trained police officers and gendarmes to assist victims of these offences in filing complaints. A psychologist is available during office hours and can join the discussion if needed. Victims can then receive personalized legal and psychosocial support at the police station.

Hate crime capacity building

Several initial training modules for police address the issue of hate crimes and interactions with victims. The training also covers the skills required for handling victim's complaint, such as active listening and building confidence. Police commissioners receive in-depth training in dealing with victims, including psychological aspects and contacts, the role of victim support associations (e.g., France Victimes), and new tools for filing complaints electronically. In addition, as part of the criminal law curriculum, responding to cases involving racism and discrimination is addressed through the study of "offences against individuals" as an aggravating circumstance. Since 2017, an initial training module for police officers has also focused on the role of civil society organizations (CSOs) in addressing hate crime. DILCRAH and CSOs such as the Ligue Internationale contre le racisme et l’antisémitisme (LICRA) and FLAG! are involved in the training module.

In most police stations, a "reception" officer is appointed and also acts as a "racism, anti-Semitism and discrimination" officer (650), while departmental "victim support" correspondents are appointed as "LGBTQI+" officers (860). In addition, 452 networks of equality/diversity officers are responsible for implementing policies related to diversity and "professional equality between women and men" within the national police directorates and active services, in particular by carrying out dedicated communication and training initiatives. The implementation and results of these policies are regularly monitored by independent external auditors as part of the certification process by the French Standards Agency (AFNOR).   

In addition, four guides are available online on the Police Academy intranet, including one on combating discrimination and harassment (2019), and another on combating racism, anti-Semitism and anti-LGBT hatred (2023). They contain reflex sheets to help officers better understand these offences, procedural recommendations (e.g., on searching for evidence), and templates to facilitate the collection of complaints.

Guidelines have also been issued specifically on personalized assessment and the rights of and support to victims of hate crime, in particular vulnerable victims (NE no. 17672 GEND/DOE/SDPJ/BPJ of 2016). There are also guidelines on interacting with victims of hate crimes based on sexual orientation and gender identity (NE no. 17500 of 17 May 2021).

Initial training for the national gendarmerie addresses the issue of hate crime in relation to ethics, in partnership with CSOs. Hate crimes are addressed as part of the police force's in-service training during sessions on the law applicable to acts of violence.

The "Equality - Diversity" officers (a national officer, 35 co-ordinators and 248 local officers) are responsible for awareness-raising initiatives among gendarmes. In particular, 100 officers working on "racism, anti-Semitism and discrimination" are appointed in each territory. They are responsible for organizing local awareness-raising initiatives. They are also supported by a network of 2,300 territorial prevention correspondents who implement the initiatives.

This work is further supported by an investigator's guide on "Sanctioning racist, anti-religious and anti-LGBTI discrimination and offences" (revised in 2020) and a methodological guide on "Hate offences" (published in 2020), which set out the techniques used to reduce the impact of police interviews on victims.

In September 2022, a methodological guide written by the OCLCH on "combating hate crimes" was updated and made accessible on investigators' computers and mobile phones via a dedicated app.The implementation of this guide to all police stations      relies on the OCLCH’s training actions. The OCLCH has set up a three-tier training: OCLCH experts (10), locally trained police officers (100) and awareness-educated police officers (around 27000).

Local trained police officers benefit from a 3-day national training in Paris, funded by the EU and offered to both French police forces, the Police Nationale and the Gendarmerie Nationale.

OCLCH experts are trained in their expertise, with a dedicated internal training to maintain their knowledge in Law and History. One officer also obtains a qualification of instructor within the training programmes of the OSCE/ODIHR     .

Since 2019, two hate crime training sessions have been held each year with the aim of creating a network of specifically trained investigators throughout France, under the guidance of DILCRAH. Police officers, gendarmes and magistrates who receive specialized training become hate crime specialists within their respective jurisdictions. The training sessions were suspended during the pandemic, but resumed in 2022.

There are also specialized courses for law enforcement available, designed in partnership with civil society organizations. The FLAG! Association provides training on homophobia and transphobia in national police schools, under an agreement renewed in 2020 for three years, and awareness-raising activities for "victim support" correspondents and "reception" officers within the national police force. In 2021, a four-party agreement was signed between the National Police Academy (ENSP) in Saint-Cyr-au-Mont-d'Or, the police training centre in Chassieu, the Maison d'Izieu - Mémorial des enfants juifs exterminés and the DILCRAH. The agreement focuses on raising awareness among day commissioners and officers at the ENSP during their initial training           It also covers student peacekeepers, assistant police officers and cadets. This agreement has been renewed every year since then. At the same time, the DILCRAH has increased the number of training opportunities it offers.

In 2023, a network of relay trainers was established withing the gendarmerie, led by the Central Office for Combating Crimes against Humanity and Hate Crimes (OCLCH) The network consists of around 100 gendarmes (judicial police officers) trained as investigators, with one gendarme representing each departmental or overseas gendarmerie. The network gendarmes are responsible for the following: raising awareness among their colleagues of hate crime litigation (to date they have reached 18,000 gendarmes); supporting field units in terms of legal qualification and conducting hearings to help identify the motive; and supporting the group commander or representing them on local operational committees to combat racism, anti-Semitism and anti-LGBT hatred.

The initial training for judges and prosecutors covers the following topics: violence aggravated by the victim's sexual orientation from the perspective of the juvenile court judge; genocide and crimes against humanity; migrants' rights when the international dimension of justice is addressed, for example during a conference on migrants; and violence based on sexual orientation or gender identity, particularly in sessions on domestic violence.

Furthermore, once they are available in French, the Ecole Mationale de la Magistrature (ENM, the National School for Judiciary) will be able to incorporate the guides produced by ODIHR into the ‘Further reading’ section of the online documentation it provides to students.

The ongoing training (five days per year) also addresses hate crimes through specific sessions such as “Judicial treatment of discrimination and hate crimes” and “Genocidal contexts: What judicial responses?”

Furthermore, training sessions are regularly organized at a regional level. For example, the Aix-en-Provence Court of Appeal organizes a one-day training session on "Hate and racism", which includes a visit to the Camp des Milles memorial site. In March 2022, agreements were signed between the ENM, National School for Magistrates, the DILCRAH, the Museum of Jewish Art and History (MahJ) and the Shoah Memorial.

Every court has an anti-discrimination unit and/or a magistrate responsible for racism, anti-Semitism and discrimination. While the organization of units varies, these units are generally made up of the referring magistrate, the specialized public prosecutor's delegate, the investigation departments, associations involved in combating discrimination and supporting victims, and representatives of other administrations concerned (e.g., the prefecture, national education, etc.). The local representative of the Human Rights Ombudsman and elected representatives may also be involved.

Finally, as part of the Council of Europe's HELP project, the ENM also provides two e-learning courses on "Combating racism, xenophobia, homophobia and transphobia" and "Hate crime and hate speech".