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Fifth Global Summit: City-Led Prevention and Response — Rising Tensions and Hate Incidents, Focus on Protests

Publication Date:

20/12/2024

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Event Reports

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Introduction

On 3 – 5 December 2024, the Strong Cities Network held its Fifth Global Summit in Cape Town (South Africa), bringing together more than 140 participants, including 60 mayors and governors, as well as city officials, practitioners and partners from more than 90 cities and 40 countries around the world. The Summit included mayoral conversations, thematic parallel sessions and tabletop exercises – providing city officials from diverse contexts with opportunities to share and learn from city-led innovations and approaches to prevent and respond to hate, extremism and polarisation, and maintain social cohesion amid global crises.

The Summit agenda included an interactive parallel session on how cities are addressing rising tensions and hate incidents in the context of public protests. Bringing together city leaders, experts and community representatives, the session was an opportunity to identify challenges and good practices in managing demonstrations while safeguarding public safety, protecting freedom of expression and maintaining social cohesion. The session was also designed to elicit initial input into a forthcoming Strong Cities’ City Action Plan for Managing Protests, leveraging insights and lessons learned from across the global membership to support cities in navigating future challenges. The draft action plan will be circulated to cities for input in early 2025.

Featured Speakers

• Nicholas Nordman, Deputy Mayor in Charge of Prevention, Victim Assistance, Security and the Municipal Police, City of Paris (France)
• Bill Vedra, Emergency Communications Director, City of Cincinnati (Ohio, USA)
• Nadeem Siddique, Head of Community Relations and Cohesion, Leeds City Council (United Kingdom)
• Mzwakhe Nqavashe, Portfolio Chairperson, City of Cape Town (South Africa)

Key Takeaways

• Community collaborations – including, for example, collaborative agreements, community problem-solving and de-escalation techniques – can help build and maintain trust with residents during times of heightened tensions, including protests and other public manifestations, while protecting freedom of speech, expression and public safety.
  
  
• Deploying non-law enforcement responses – such as civilian responders trained in de-escalation and crisis intervention – to manage non-violent incidents can help de-escalate rising tensions, foster constructive dialogue and mitigate potential conflicts.
  
  
• Timely, accurate, considered, coordinated and consistent communications are crucial during times of crisis, particularly to correct mis/disinformation and conspiracy narratives, and equip residents with the information they need to feel safe and secure. Who delivers the message is as important as the content of the message. Mayors and other city leaders are important unifying and reassuring figures during crises, and cities should engage community leaders and faith networks to ensure messaging through trusted figures reaches all residents.
  
  
• Protecting freedom of speech is a cornerstone of democratic societies and a key responsibility for cities; it also requires cities to be clear with residents as to what constitutes hate speech and incitement to violence, consistent with the rule of law. Ensuring wide community understanding and enforcing standards consistently across all issues and communities, helps mitigate against escalation and promotes fairness and equal treatment.
  
  
• As cities navigate local impacts of global and domestic crises, strengthening national-local cooperation across government levels – from resourcing to coordination with national and local law enforcement to ensure consistent enforcement across all issues and communities to public messaging – is essential for de-escalating and ensuring public safety.

Building and Maintaining Trust Through Community Collaborations

Bill Vedra, Emergency Communications Director, City of Cincinnati (Ohio, USA), shared his city’s transformative journey in addressing community tensions, demonstrating that even in the wake of intense unrest, a commitment to dialogue, transparency and accountability can foster long-term change. Following civil unrest and violent protests in 2001, Cincinnati implemented a Collaborative Agreement, a framework co-developed with community groups, police and the city administration. This established clear protocols for police reform, promoted ongoing dialogue and empowered the community to work alongside law enforcement. It codified goals to strengthen trust and respect and enhanced officers’ education, oversight, monitoring, recruitment and accountability, addressed biased policing, and better informed the public on law enforcement operations. By working with communities, Cincinnati strengthened trust between residents, law enforcement and the local government. The impact was evident during the George Floyd protests in 2020, where demonstrations were largely peaceful, and law enforcement leaders joined protesters in solidarity, reinforcing the city’s commitment to justice and reform.

Similarly, Mzwakhe Nqavashe, Portfolio Chairperson, City of Cape Town (South Africa), shared how Cape Town, recognising the need for comprehensive reform following Apartheid, retrained its police force to respect human rights and prioritise de-escalation. Today, he said, the police and wider city’s partnerships with community organisations play a crucial role in preventing violence and fostering understanding during protests. By involving diverse stakeholders, the city ensures that public demonstrations occur peacefully and in alignment with democratic values. Mzwakhe noted that building trust requires not only policy reforms but also a cultural shift within law enforcement agencies, underscoring the importance of empathy and dialogue in crisis response.

Police must negotiate and connect with protesters, not approach them with force. This fosters trust and prevents violence.

Mzwakhe Nqavashe, Portfolio Chairperson, City of Cape Town (South Africa)

Non-Law Enforcement Responses

Participants also shared how innovative public safety strategies are increasingly emphasising the value of non-law enforcement responses to non-violent incidents, helping to de-escalate tensions and foster trust.

For example, Cincinnati’s approach to public safety includes deploying civilian responders trained in crisis intervention and de-escalation techniques. Bill Vedra explained that these teams, which include paramedics and behavioural health professionals, address non-violent incidents that traditionally relied on police intervention. By tailoring responses to the specific nature of each crisis, Cincinnati has reduced reliance on law enforcement and built stronger community trust. Expanding these initiatives, the city is training community responders to act as ambassadors in high-tension areas, particularly among youth.

Expanding our toolbox beyond law enforcement, we’ve trained community responders to de-escalate tensions, especially in youth-centric areas. This approach strengthens community trust.

Bill Vedra, Emergency Communications Director, City of Cincinnati (Ohio, USA)

Likewise, in Leeds (United Kingdom), the city engages youth workers and community leaders to work with marginalised groups during protests. Nadeem Siddique, Head of Community Relations and Cohesion, Leeds City Council (United Kingdom), shared that recognising the mistrust young people often feel toward law enforcement, the city prioritises the involvement of trusted figures who can bridge divides and ensure that protests remain peaceful. By proactively involving community leaders, the city fosters constructive dialogue and provides alternative outlets for civic engagement, underscoring the city’s commitment to inclusive governance and responsive public safety strategies. These partnerships can transform protests from flashpoints of conflict into opportunities for dialogue and understanding.

Cincinnati is also integrating technology, such as real-time crime monitoring systems and drones, alongside community responders trained in de-escalation and crisis intervention. Bill shared that the city has “historically used police as a Swiss Army knife, deploying them to situations they weren’t necessarily equipped for” or were not the most appropriate response. The city is now leveraging technology and civilian responders, especially in youth-focused areas and non-violent crises, which is not only optimising resource allocation but strengthening trust between communities and local authorities​.

Nicholas Nordman, Deputy Mayor in charge of prevention, victim assistance, security and the municipal police for the City of Paris (France), shared how his city’s “prevention by design” approach, which integrates urban planning considerations, and the creation of inclusive public spaces, serves as a mechanism for pre-empting conflict. This proactive approach aligns with the city’s broader goals of fostering social cohesion and reducing the potential for unrest. By embedding safety considerations into urban design, cities can address root causes of tension and promote harmonious interactions among diverse populations.

Inclusive public spaces reduce conflict potential and enhance social cohesion.

Nicholas Nordman, Deputy Mayor of Paris (France)

These examples reflect a broader shift towards holistic public safety approaches, with cities relying on an increasingly diverse array of resources (beyond police) to address complex social issues, demonstrating how non-law enforcement interventions can diffuse potentially volatile situations and create spaces for constructive dialogue.

Timely, Accurate, Considered, Coordinated and Consistent Communications

Strategic communication was identified as crucial in navigating protests and ensuring public safety. By bringing together diverse voices, speakers said that cities can foster a shared understanding, establish dialogue to address mis/disinformation and address grievances proactively. They emphasised the importance of using communications not merely as a reactive tool but as a proactive strategy for building resilience and cohesion.

Nadeem recounted how Leeds (United Kingdom) recently navigated the aftermath of a high-profile child protection case, which had eroded trust with a particular community and led to violent protests. Leeds worked with community leaders, police and local faith groups to issue joint statements, which Nadeem said, “helped defuse tensions and rebuild trust”.

Cape Town (South Africa) has similarly embraced strategic communications as a vital tool for de-escalation and maintaining public order. Mzwakhe described how the city’s investment in advanced safety information systems has enhanced visibility of violent outbreaks. Moreover, by preparing pre-emptive messaging and engaging with protest organisers before demonstrations, Cape Town is promoting a culture of dialogue and transparency. These proactive measures, combined with the city’s commitment to inclusivity, he said, is strengthening its ability to manage complex and rapidly evolving social dynamics effectively.

Addressing Sensitive Issues and Hate Speech

A recurring challenge highlighted by cities during the session was how to protect freedom of speech/expression – fundamental democratic freedoms – while ensuring public safety and protecting residents from harm. Nadeem shared how Leeds (United Kingdom) manages sensitive language during protests, ensuring that while controversial terms may be used under free speech protections, a line is firmly drawn at hate speech, as defined under British law. Consistency in applying these standards across all communities has been crucial in maintaining fairness and trust and preventing harm to individuals and society. 

Language can be very toxic for some communities. We are very clear on the demarcation between freedom of speech and incitement to racial or religious hatred. Transparency and consistent enforcement build fairness and trust, especially during polarised protests.

Nadeem Siddique, Head of Community Relations and Cohesion, Leeds City Council (United Kingdom)

Mzwakhe shared how, in South Africa, Equality Courts hold individuals accountable for inciting violence or spreading hate speech. In addition, the city has a transparent legal framework in place, and through consistent, equitable enforcement, sets clear expectations for protest organisers as to what constitutes hate speech or inciting violence, mitigating the risk of escalation.

Speakers also shared challenges posed by online mis/disinformation and conspiracy narratives that can rapidly exacerbate threats to public order and community trust. They emphasised the need for cities to work collaboratively with media outlets and ensure wide dissemination of timely, accurate city messaging – both through a variety of online platforms and trusted community leaders. Participants also recommended establishing a centralised mechanism within the local government to ensure that leaders and frontline officials have greater visibility to mis/disinformation that might be circulating and accurate information to share with the community.

Strengthening National-Local Cooperation

Nicholas (Paris, France) also highlighted the challenges and responsibilities that come with hosting large-scale demonstrations in a major city, such as Paris. He explained that his city often faces difficulties because the responsibility for maintaining public order in France lies with the national government rather than the city. This creates challenges for local governments, which bear the consequences of damage, must shoulder the costs of repairs, restore public order and confidence, and support the healing of communities targeted by the action. Nordman emphasised the need for greater collaboration between local and national stakeholders in such instances to ensure better preparation for protests and to streamline the process of addressing the aftermath.

Many participants – from cities big and small, urban and rural – underscored the critical importance of ongoing collaboration between local governments and national authorities, with cities facing considerable resource constraints while managing rapidly evolving crises. Strengthening national-local cooperation around data collection, resource allocation and strategic communications were identified as key priorities. By advocating for more robust support from and collaboration with national governments, cities can better address the underlying causes of unrest and enhance their capacity to respond effectively.

Priscilla Demana, General Manager for Community Services, Musina Municipality (South Africa), highlighted the challenges her town faces in the context of migration, given its location bordering Zimbabwe, Botswana and Mozambique. A significant increase in undocumented migrants has placed pressure on Musina’s limited resources and has given rise to community tensions. Through a partnership with the City of Koboko (Uganda), facilitated by Strong Cities, Musina has been implementing a model that includes and encourages migrant leaders to participate in local committees, ensuring that migrants are active participants in resolving the challenges they face. This model, which could have relevance to cities facing similar challenges in other regions in the global South, further helps build relationships between migrant and hosting communities which in turn reduces tensions that can arise due to the competition over the limited resources.  

Next Steps

This session further highlighted the challenges local governments and leaders face in managing and de-escalating rising tensions. The experiences shared by Cincinnati, Leeds and Cape Town underscore the value of trust-building, strategic communication and collaborative governance; not just during times of crisis but for future resilience.

Insights shared during the session will inform a forthcoming Strong Cities Network City Action Plan, which will aim to equip city leaders with practical steps and considerations for managing protests and other public demonstrations, while protecting both freedom of speech and public safety, providing safe spaces for dialogue, and harnessing the transformative potential of empathy and inclusivity.

Further Resources

See policy briefs and key recommendations from our Global Crises, Local Impacts Initiative:

• Navigating Local Impacts of Global Crises: Ten Considerations for Mayors and Cities – Lessons from the Israel-Gaza Crisis, Strong Cities Network, December 2023
• Global Crises, Local Impacts: Key Findings & Recommendations to Date (April – September 2024), Strong Cities Network, September 2024
• Global Crises, Local Impacts: Key Findings & Recommendations to Date (December 2023 – April 2024), Strong Cities Network, April 2024

Other Strong Cities policy briefs and resources:

• Creating Safe, Cohesive and Resilient Cities through Urban Planning & Design: Ten Considerations for Mayors and Local Governments, Strong Cities Network, December 2024
• City-Led Prevention of Hate, Extremism and Polarisation: Leveraging Local Youth Councils, Strong Cities Network, December 2024
• City-Led Youth Engagement in Addressing Hate, Extremism and Polarisation: Ten Recommendations for Cities, Strong Cities Network, December 2024
• Countering Hate Speech in Times of Crisis: Considerations for Mayors and Local Governments, Strong Cities Network, December 2024
• Creating Safe, Cohesive and Resilient Cities through Urban Planning & Design: Ten Considerations for Mayors and Local Governments, Strong Cities Network, December 2024
• National-Local Cooperation: A Pillar of City-Led Prevention of Hate, Extremism and Polarisation – A Practice Update, Strong Cities Network, December 2024
• A Guide for Cities: Preventing Hate, Extremism & Polarisation, Strong Cities Network, updated 2024
• A Guide for Mayors: Preventing and Responding to Hate, Extremism & Polarisation, Strong Cities Network, updated 2024
• A Guide for City-Led Response, Strong Cities Network, May 2024 
• City Spotlights Library, Strong Cities Network

Donors & Partners

The Fifth Global Summit was made possible with generous support from the European Union, Ministry of Foreign Affairs of Denmark, Public Safety Canada, the US Department of State and the City of Cape Town. 

The views expressed in this session report do not necessarily reflect those of all Strong Cities Network members, the Management Unit or Summit sponsors and partners. 

Contact Information 

For more information about the Fifth Global Summit or the Strong Cities Network, please contact [email protected].

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