Guidance

National Action Plan for the Safety of Journalists (2023)

Updated 30 October 2023

Ministerial foreword

Without fear or favour. Four words that are the essence of an independent, free press.

That freedom - to express ideas, to report facts and to shine a light on corruption and abuses of power - is why a free press is the cornerstone of any functioning democracy. It is no coincidence that maps of the world’s healthiest democracies and maps of the world’s freest press environments are almost identical.

In the UK we recognise that independent journalism makes democracy stronger because it helps people trust sources for reliable facts and offers them a plurality of opinions. In turn, people should always be trusted to comprehend these facts, process their complexity, and make up their own minds.

As Culture Secretary, and as a Government, we will never take media freedom for granted and we will always do everything in our power to safeguard the independence of the press.

Criticism has always been a natural and healthy part of the journalistic process. But it was once the case that intense barrages of criticism were reserved for a handful of the most polarising topics in public life. Now nearly every issue triggers that level of reaction and more. We are frequently seeing criticism mutate into threats and abuse directed at journalists who are just doing their jobs.

And the advent of new technologies and means of communication has made it easier than ever before for threats and abuse to reach journalists and media outlets, often under the cloak of online anonymity. This is totally unacceptable and it is our responsibility to tackle it head on.

Our introduction of online safety legislation and the recent introduction of a new taskforce to address the abuse of our legal system by powerful individuals who look to frustrate investigative journalism with SLAPPs, will combine to offer journalists and media outlets greater protection.

And the focal point for tackling threats to journalists has come in the form of the National Committee for the Safety of Journalists, co-chaired by the Minister for Media, Tourism and Creative Industries and the Minister for Safeguarding, and is comprised of representatives from the police and prosecutors from across the UK, as well as publishers, broadcasters, groups representing journalists and non governmental organisations.  The Committee’s Action Plan set out in 2021 gives us a clear blueprint for how we confront these problems and deliver a stepchange in how journalists are protected in the UK.

Since it was published, a huge amount of progress has been made. The National Police Chiefs Council has appointed a lead on crimes against journalists, meanwhile a new Online Safety Toolkit for journalists has been launched along with a free e-learning course on journalism safety and resilience by the National Council for Training of Journalists.

But the nature, and prevalence, of the threats being faced by journalists and media outlets has continued to intensify. As those threats evolve, so must our plan for tackling them and that is why we have expanded the National Action Plan for the Safety of Journalists.

Included in the refreshed document are a number of commitments that will improve the level of protection felt by journalists. These involve more support for journalists from employers and online platforms like Meta and X, a commitment to explore a new online tool to enable data-gathering on safety issues and further action from police to tackle crimes against journalists.

We recognise the integral role played by those organisations with responsibility for keeping journalists safe and they have helped us to shape this updated document. Particular credit is owed to members of the National Committee for Safety of Journalists and all those with a commitment in the updated Plan. 

The message this updated plan sends could not be clearer: we are on the side of journalists and we are committed to protecting them.

Rt Hon Lucy Frazer, Secretary of State, Department for Culture, Media and Sport

Statements of support from co-Chairs of the National Committee for the Safety of Journalists

A free press and independent press is at the heart of our democracy, and journalists must be able to report on stories without fear or intimidation. I am pleased with the significant progress that has been made in the two years following the National Action Plan’s publication. Our refreshed plan reflects the evolving nature of safety concerns faced by journalists working in the UK and sets out how we will continue to tackle these.

Rt Hon John Whittingdale, Minister for Media, Tourism and Creative Industries, Department for Culture, Media and Sport

The publication of the first National Action Plan in 2021 signalled our strong commitment across the public sector and industry to protecting journalism and recognised the importance of a free press. The refreshed plan reiterates this commitment and will build on our work-to-date, ensuring we play our part in ensuring an environment that enables journalists to carry out their critical role free from threats and abuse.

Rt Hon Sarah Dines, Minister for Safeguarding, Home Office

Introduction

A free press is one of the cornerstones of a healthy democracy. Journalists play a crucial role in holding truth to power and helping citizens to understand the world, and make informed decisions. It is therefore a priority for the Government that journalists must be able to operate under conditions which enable a free press to flourish - and this includes an environment where journalists are safe. 

In 2021, the UK published its first ever National Action Plan for the Safety of Journalists against a backdrop of increasing abuse, threats and harms directed at journalists. Risks to journalists’ personal safety simply for doing their jobs are unacceptable, and the consequences for media freedom are grave. We know that many journalists ultimately make the difficult decision not to pursue certain stories, or abandon ongoing investigations, due to fears for their safety. This means that issues of significant public interest may be left unreported. The National Action Plan is a key step towards ensuring journalists can carry out their role in informing the public and holding the powerful to account. Alongside the National Committee for the Safety of Journalists (NCSJ), which oversees its delivery, the Plan is an important demonstration that the UK will not tolerate behaviour which endangers journalists’ personal safety. This work is critical to upholding values which the UK has a long and celebrated history of protecting through its safeguarding of a free, unhindered press.

The original Plan set out a comprehensive approach and outlined five key pathways to increase the safety of journalists. It has helped to embed collaborative relationships across NCSJ members and with key partners who have a role in ensuring journalists’ safety including the National Council for Training of Journalists, the Media Lawyers Association, Meta, and X, to deliver swift, targeted action. 

Significant progress has been made in the two years following the Plan’s publication. The National Police Chiefs Council has appointed a lead on crimes against journalists and 22 police forces across the UK, including Police Scotland and Police Service Northern Ireland have appointed Journalist Safety Liaison Officers in order to enhance communication between journalists and police officers. Several new resources to support journalists have also been launched.  These include specific guidance on online harassment published by the Media Lawyers Association in 2021 (‘Combatting online harassment and abuse: ABUSE: a legal guide for journalists in England and Wales’) and an Online Safety Toolkit launched by the National Union of Journalists and the Society of Editors which hosts a suite of tools and resources for journalists. A number of employers have also appointed designated safety officers to support staff and freelancers internally, for example Reach PLC. To raise journalists’ awareness of safety issues, the National Council for Training of Journalists has launched a free e-learning course on journalism safety and resilience as part of its Journalism Skills Academy, with modules including online safety and the relationship between the police and journalists. Long-term and ongoing actions are well underway, such as ensuring training opportunities across police forces and newsrooms remain relevant and up to date. An overview of work undertaken over the two years since the Plan’s publication can be found here.

While these achievements are significant, since the publication of the Plan, new evidence has emerged that underlines the undeniable need for more action to tackle this problem. It is clear that the prevalence of threats and abuse is ongoing and there has been an evolution in the nature of this issue, due to changes in the way journalists operate and the increasing consumption of digital news content. 

We must also respond to an evolving global context. For example, the conflict in Ukraine has shone a spotlight on how journalists routinely endanger themselves in order to uphold the truth. The arrest and detention of Wall Street Journal reporter, Evan Gershkovich, in Russia earlier this year is a stark and worrying example of the dangers journalists face when simply doing their job, as is the detention of Apple News founder Jimmy Lai in Hong Kong. We also must not overlook the specific threats towards UK-based journalists working for Iran International and their families, in what is a very real act of oppression by the Iranian regime. Whilst the National Action Plan focuses on the domestic issues faced by journalists working in the UK, we must be mindful of the challenges facing journalists operating overseas. The UK will continue to champion the safety of journalists internationally through proactive engagement with other jurisdictions. Similarly, we will seize the opportunity to implement learnings from such engagement into our own response. 

We must also stay alive to new threats to media freedom that have emerged in recent years, the most worrying one being Strategic Lawsuits Against Public Participation (SLAPPs). SLAPPs are considered an abuse of the legal process, where the primary objective is to harass, intimidate and financially and psychologically exhaust one’s opponent via improper and costly legal intervention. All too often, journalists are deterred from pursuing stories that expose wrongdoing due to the high costs involved with the lawsuits, making defending the case beyond the reach of those targeted by this form of litigation. While it remains a priority to ensure those with legitimate claims have access to justice, SLAPPs pose a significant risk to the free press by ultimately seeking to silence journalists and curtail accurate reporting on issues of public interest. There are also accounts of journalists being targeted by SLAPPs who then find that these legal tactics develop into threats to their physical safety. It is clear that the increasing impact of SLAPPs on journalists underlines the importance of ensuring a coordinated response to tackling all safety issues, which this Government is committed to delivering.

As our understanding of the scale of the problem, and how to effectively keep journalists safe, increases, now is the time to build on progress made to date. This is why we are introducing new commitments designed to tackle behaviour that risks silencing reporting on vital public interest issues, or censoring debate.

Increase our understanding of the problem

A robust evidence base is key to taking meaningful action and informing our approach. It is now a priority that we build on what we already know from the Call for Evidence published in 2021 and our ongoing engagement with journalists in order to build a better understanding of the prevalence and type of threats and abuse experienced. However this evidence also demonstrates that journalist safety is an ever-evolving issue. This means it is crucial to improve our understanding of the full extent of the threats that journalists are currently facing in the UK by creating opportunities to gather real-time data.

Increased international engagement since the launch of the Plan, including the first G7 Media Ministers meeting in 2022 and participation in the Council of Europe Campaign for the Safety of Journalists, has also yielded invaluable insight into best practice in other jurisdictions as well as opportunities for the UK to influence the response globally.

With this in mind, the following new commitments have been agreed:

Boost the evidence base through DCMS and the National Union of Journalists exploring the launch of an online tool to enable data-gathering on safety issues taking place in the UK.

Promote, support and defend media freedom internationally, sharing UK experience in international fora including at the United Nations, the Organisation for Security and Cooperation in Europe, the Council of Europe, and the Commonwealth. Support the Media Freedom Coalition to increase its profile and impact, expanding the work of the Coalition’s Diplomatic Networks, and supporting journalists through UNESCO’s Global Media Defence Fund. Promote the safety of female journalists through the National Cyber programme, supporting work to understand the trajectory between online and offline attacks on female journalists. Work to counter the proliferation of technology facilitated gender-based violence which affects female journalists through leading work with the Global Partnership for Action on Online Gender-based Harassment and Abuse.

Enhance the criminal justice system response in tackling crimes against journalists

Criminal offences committed against journalists interfere with their rights to free speech and public service, and prosecutors rightly take such offences extremely seriously. The National Action Plan recognised the importance of ensuring justice for journalists subjected to criminal offences in carrying out their role. A key component in driving forward this commitment has been dedication from UK police forces to support journalists that have been subject to crime.

Case study

The Police Service of Northern Ireland (PSNI) has made transformative progress in addressing journalist safety in Northern Ireland. Activity is underpinned by a comprehensive strategy, developed in collaboration with the National Union of Journalists and Northern Ireland-based news editors. Regular meetings continue with the National Union of Journalists, the Society of Editors and news editors which enable PSNI to receive feedback on the service. Chief Superintendent Sam Donaldson cites the importance of open, strategic communication between the police and journalists as key to PSNI’s success.

PSNI has also established formal operational procedures. Two Journalist Safety Officers (JSOs) have been appointed and are notified of all reports of personal threats and crime made by journalists. A detective is then appointed to handle each and every incident, with Chief Superintendent oversight. An internal Journalist Safety Group (JSG) with representatives from teams including investigations and intelligence has also been established; it discusses activity to address crimes against journalists, as well as individual cases. An updated website also provides journalists with specific information on reporting crime and a new system has been launched to ensure effective triaging of cases from journalists’ first point of contact. 

PSNI has also delivered online seminars on the difference between crime, incidents and threats; and delivered lectures to Ulster University media students on the role of the police in journalist safety.

There have been a small number of successful prosecutions following this new approach, and feedback from the National Union of Journalists, Northern Ireland-based editors and local journalists has been unanimously positive. 

Ensuring journalists are safe to report on public interest events has a critical role in democratic life and is why Public Order training to foster understanding between journalists and the police has been prioritised since the publication of the National Action Plan. New measures in the Public Order Act 2023 establish a safeguard for journalists by specifying that the police cannot use their powers solely to prevent a person from reporting on or observing protests.

It is against this backdrop that the following new commitments have been agreed:

Encourage appointment of Journalist Safety Liaison Officers by all forces across the UK and identify opportunities to promote the role of police officers to newsrooms.

Foster positive communication and understanding between the National Police Chief’s Council (NPCC) and bodies representing journalists who will continue to engage monthly to discuss live issues and identify learnings for police and journalists.

Develop and roll-out opportunities for police officers to undertake Public Order training reflecting the role of journalists.

Welcome new College of Policing guidance on Public Order by NPCC.

Support journalists and their employers to build the resources they need to protect personal safety

The National Action Plan highlighted the importance of equipping journalists with the right tools and information to maintain their safety as much as possible. It made clear that much of this responsibility lies with their employers. A number of initiatives are now being led by news organisations across the UK, and it is important we build on these in order to ensure journalists have access to the right kinds of support.

Examples of action taken by employers

Swift action has been taken by employers across the UK media sector to support staff, including freelancers. As a first step, many have implemented clear reporting channels to log cases of abuse and ensure staff are signposted to the correct support as smoothly as possible.

Reach plc is among the first to appoint an Online Safety Editor, Dr Rebecca Whittington, a designated role which serves to support all Reach colleagues facing incidences of online abuse as well as to safeguard against future cases. Reach takes a holistic approach to safety and the Editor works with security, health and safety, and HR to ensure a joined-up approach to all safety issues. This is combined with the launch of a network of Online Safety Representatives made up of trained volunteers in newsrooms across the organisation who act as online safety ‘first responders’, offering signposting and support to colleagues facing online harm and sharing resources and knowledge.

The BBC has also prioritised online safety and has updated its policy for staff and freelancers across the whole of the UK on managing online abuse and harm including new information on reporting incidents and the introduction of a system that logs abuse. The BBC has also appointed 100+ mental health first aiders to provide peer-to-peer support to staff exposed to trauma. 

Many organisations are empowering staff to protect themselves through comprehensive training opportunities including National World, Telegraph Media Group and LBC. The Guardian has also published social media guidelines for staff which provides advice on blocking and reporting abusers and has been widely welcomed by staff.

A number of employers have recognised the risks posed by comments sections on online news content and have taken steps to safeguard against these. For example, News UK has taken a multi-faceted approach across its titles including limiting comments to only registered users; or in some cases, disabling this functionality on particularly contentious stories.

Journalists also need direct access to clear and accurate advice and information, such as the guidance published by the Media Lawyers Association in 2021 (‘Combatting online harassment and abuse: ABUSE: a legal guide for journalists in England and Wales’) which supports journalists to navigate the law in regard to online abuse, as well as new practical tools to provide support.

Case study

The National Union of Journalists and the Society of Editors have collaborated on an Online Safety Toolkit that was published during Journalism Matters week 2022. This pack covers a variety of issues such as physical and digital safety, mental health and the right to report, as well as signposting to other helpful resources. The pack will continue to be adapted in response to feedback from journalists.

To build on recent successes the following new commitments have been agreed:

Foster collaboration across employers by establishing a bi-annual sub-committee of the National Committee for the Safety of Journalists to discuss experiences of tackling safety issues and share best practice.

Update guidance published by the Media Lawyers Association to reflect the new Online Safety regulatory regime and extending this guidance to Scotland and Northern Ireland.

Help online platforms to tackle the wider issue of abuse online

The advent of social media has led to a significant change in how journalists reach their audience, including an increase in the use of online platforms to promote their work and engage in public debate. According to Ofcom’s 2023 News Consumption Survey, almost half of adults use social media to access news. Therefore, it is unsurprising that a significant proportion of abuse experienced now takes place online, rather than in person. We welcome Meta’s and X’s collaboration with the NCSJ and the work underway to reduce journalists’ exposure to direct and indirect harmful content on both platforms. 

However, the increasing consumption of digital news content, as well as journalists’ lack of confidence in how best to resolve instances of online abuse, makes clear that more must be done to ensure that the internet is a safe space for journalists and risks of online threats and abuse do not hinder reporting on important issues.

To ensure action reflects increasing digital news consumption the following new commitments have been agreed:

Safeguard journalists on online platforms through implementation of measures by Meta and X.

Work with Ofcom to implement the Online Safety regime as soon as possible and ensure that services understand what is expected of them.

Improve public recognition of the value of journalism

The National Action Plan also highlighted the importance of ensuring that the public recognises the value of journalism and a free press in providing clear and accurate news and information and maintaining a broad public discourse. Furthermore, that any risks to a free press are a direct threat to democratic life.

With this in mind, upholding an environment where journalists are free to carry out their work continues to be a priority for the whole of Government. Ministers have listened closely to journalists to understand how a free press can thrive and this strong, pro-media freedom consensus is evident in recent policy measures. The Online Safety Act has been designed with consultation from news media organisations on how to protect press and media freedom, and includes robust provisions to ensure people can continue to access diverse news sources online. The Government also made proactive amendments to the National Security Act during its passage through Parliament to make unambiguously clear that genuine journalistic activity is out of scope of its offences. The Government also amended the Economic Crime and Corporate Transparency Act to address SLAPPs linked to economic crime.

The National Action Plan has also highlighted the efforts of NCSJ members in taking meaningful action to promote the value of journalism, and will continue to do so. The News Media Association leads an annual campaign of activity, Journalism Matters Week, which showcases the vital role trusted journalism plays in our democratic society. Government ministers and news media stakeholders have leveraged this opportunity to publicly highlight the UK’s commitment to a diverse, free press and to keeping journalists safe.

Promoting the essential role that journalism plays in public life - and the risks of undermining it - is key to defending the values of media freedom and a free press which are at the core of our democracy.

To demonstrate the ongoing commitment to the value of journalism the following new commitments have been agreed:

Boost media literacy, with the Department for Science, Innovation and Technology (DSIT) publishing annual Action Plans every year until 2024/25.

Promote safety of journalists including through public facing events to build understanding of work underway.

Strategic Lawsuits Against Public Participation (SLAPPs)

The Government has already introduced tough new laws to clamp down on the majority of SLAPPs via the Economic Crime and Corporate Transparency Act. This will seek to protect defendants from abusive litigation, while ensuring those with legitimate claims have access to justice. However it is equally important that we increase understanding and awareness of SLAPPs’ impact on journalists and identify, develop and drive forward non-legislative measures to support journalists facing SLAPPs. The NCSJ provides an established and recognised framework for work in this space, affording valuable opportunities to develop outputs that are aligned to the wider safety agenda. A new SLAPPs Taskforce was launched in September this year, attended by the Secretary of State for Culture, Media and Sport.

In response to the emerging threat of SLAPPs, the following new commitment has been agreed:

Tackle the risks posed by SLAPPS via the new SLAPPs Taskforce, led by DCMS and the Ministry of Justice, within the framework of the NCSJ. The Taskforce brings together government, civil society, representative bodies for journalists, and legal services stakeholders to develop a non-legislative response to SLAPPs.

Next steps

These new commitments have been agreed by the NCSJ and the organisations that have responsibility for their delivery. As new information continues to come to light about the safety problems experienced by journalists and about the efficacy of interventions, the Plan will be revisited to ensure it is as relevant as possible.

The Government will continue to work with stakeholders to report to the NCSJ annually on progress against all commitments. The NCSJ will hold to account each stakeholder who commits to an intervention, both at the formal meetings which it holds twice a year and in its day-to-day interactions within the sector.

Table of interventions

Action	Owner
Increase our understanding of the problem
Boost the evidence base through DCMS and the National Union of Journalists exploring the launch of an online tool to enable data-gathering on safety issues taking place in the UK.	DCMS & NuJ
Promote, support and defend media freedom internationally, sharing UK experience in international fora including at the United Nations, the Organisation for Security and Cooperation in Europe, the Council of Europe, and the Commonwealth.	FCDO
Support the Media Freedom Coalition to increase its profile and impact, expanding the work of the Coalition’s Diplomatic Networks, and supporting journalists through UNESCO’s Global Media Defence Fund.	FCDO
Promote the safety of female journalists through our National Cyber programme, supporting work to understand the trajectory between online and offline attacks on female journalists. Work to counter the proliferation of technology facilitated gender-based violence which affects female journalists through leading work with the Global Partnership for Action on Online Gender-based Harassment and Abuse.	FCDO
Enhance the criminal justice system response in tackling crimes against journalists
Encourage appointment of Journalist Safety Liaison Officers by all forces across the UK and identify opportunities to promote the role of police officers to newsrooms.	NPCC & Police forces
Foster positive communication and understanding between the NPCC and bodies representing journalists who will continue to engage monthly to discuss live issues and identify learnings for police and journalists.	NPCC & industry
Develop and roll-out opportunities for police officers to undertake Public Order training reflecting the role of journalists.	NPCC & Police forces
Welcome new College of Policing guidance on Public Order by NPCC.	NPCC
Support journalists and their employers to build the resources they need to protect personal safety
Foster collaboration across employers by establishing a bi-annual sub-committee of the National Committee for the Safety of Journalists to discuss experiences of tackling safety issues and share best practice.	Publishers/Broadcasters/Radio stations
Update guidance published by the Media Lawyers Association to reflect the new Online Safety regulatory regime and extending this to Scotland and Northern Ireland.	DCMS & Media Lawyers Association
Help online platforms to tackle the wider issue of abuse online
Safeguard journalists on online platforms through implementation of measures by Meta and X (see below).	Meta & X
Meta will continue efforts to support and empower journalists to safeguard themselves online through: Content policies to support public figures; Enhancing tools available to users, including journalists, to control who can engage with posts; Continuing to enable stronger security features for registered journalists including through Facebook Journalist Registration and Facebook Project; Ensuring clear, easy to use channels for journalists and publishers to raise and escalate issues including in-app features to report, block, and mute; and a journalist safety guide; Continuing engagement with publishers and other related bodies where appropriate to signpost journalists to resources available; Maintain engagement with UK police forces and consider learnings from these discussions as appropriate.	Meta
X is committed to ensuring journalists feel safe to share and discuss what they report through: Enforcing X’s rules and policies to protect platform safety and freedom of speech; Ensuring clear and easy to use channels are available for all users, including journalists, to report content; Providing a range of safety settings and controls for users, including options to mute and block content; Making conversation settings available to allow users to choose who can reply to their posts and join a discussion; Providing dedicated resources for journalists, including a comprehensive summary of the tools they can use to stay safe on the platform; Engagement with law enforcement agencies where appropriate.	X
Work with Ofcom to implement the Online Safety regime as soon as possible and ensure that services understand what is expected of them.	DSIT
Improve public recognition of the value of journalists
Boost media literacy by publishing annual Action Plans every year until 2024/25.	DSIT
Promote safety of journalists including through public facing events to build understanding of work underway.	NCSJ
Legal threats
Tackle the risks posed by SLAPPS via the new SLAPPs Taskforce, led by DCMS and the Ministry of Justice, within the framework of the NCSJ. The Taskforce brings together government, civil society, representative bodies for journalists, and legal services stakeholders to develop a non-legislative response to SLAPPs.	DCMS & MoJ