EFF, Access Now, and Article 19 have written to EU Commissioner for Internal Market Thierry Breton calling on him to clarify his understanding of “systemic risks” under the Digital Services Act, and to set a high standard for the protection of fundamental rights, including freedom of expression and of information. The letter was in response to Breton’s own letter addressed to X, in which he urged the platform to take action to ensure compliance with the DSA in the context of far-right riots in the UK as well as the conversation between US presidential candidate Donald Trump and X CEO Elon Musk, which was scheduled to be, and was in fact, live-streamed hours after his letter was posted on X. 

Clarification is necessary because Breton’s letter otherwise reads as a serious overreach of EU authority, and transforms the systemic risks-based approach into a generalized tool for censoring disfavored speech around the world. By specifically referencing the streaming event between Trump and Musk on X, Breton’s letter undermines one of the core principles of the DSA: to ensure fundamental rights protections, including freedom of expression and of information, a principle noted in Breton’s letter itself.

The DSA Must Not Become A Tool For Global Censorship

The letter plays into some of the worst fears of critics of the DSA that it would be used by EU regulators as a global censorship tool rather than addressing societal risks in the EU. 

The DSA requires very large online platforms (VLOPs) to assess the systemic risks that stem from “the functioning and use made of their services in the [European] Union.” VLOPs are then also required to adopt “reasonable, proportionate and effective mitigation measures,”“tailored to the systemic risks identified.” The emphasis on systemic risks was intended, at least in part, to alleviate concerns that the DSA would be used to address individual incidents of dissemination of legal, but concerning, online speech. It was one of the limitations that civil society groups concerned with preserving a free and open internet worked hard to incorporate. 

Breton’s letter troublingly states that he is currently monitoring “debates and interviews in the context of elections” for the “potential risks” they may pose in the EU. But such debates and interviews with electoral candidates, including the Trump-Musk interview, are clearly matters of public concern—the types of publication that are deserving of the highest levels of protection under the law. Even if one has concerns about a specific event, dissemination of information that is highly newsworthy, timely, and relevant to public discourse is not in itself a systemic risk.

People seeking information online about elections have a protected right to view it, even through VLOPs. The dissemination of this content should not be within the EU’s enforcement focus under the threat of non-compliance procedures, and risks associated with such events should be analyzed with care. Yet Breton’s letter asserts that such publications are actually under EU scrutiny. And it is entirely unclear what proactive measures a VLOP should take to address a future speech event without resorting to general monitoring and disproportionate content restrictions. 

Moreover, Breton’s letter fails to distinguish between “illegal” and “harmful content” and implies that the Commission favors content-specific restrictions of lawful speech. The European Commission has itself recognized that “harmful content should not be treated in the same way as illegal content.” Breton’s tweet that accompanies his letter refers to the “risk of amplification of potentially harmful content.” His letter seems to use the terms interchangeably. Importantly, this is not just a matter of differences in the legal protections for speech between the EU, the UK, the US, and other legal systems. The distinction, and the protection for legal but harmful speech, is a well-established global freedom of expression principle. 

Lastly, we are concerned that the Commission is reaching beyond its geographic mandate.  It is not clear how such events that occur outside the EU are linked to risks and societal harm to people who live and reside within the EU, as well as the expectation of the EU Commission about what actions VLOPs must take to address these risks. The letter itself admits that the assessment is still in process, and the harm merely a possibility. EFF and partners within the DSA Human Rights Alliance have advocated for a long time that there is a great need to follow a human rights-centered enforcement of the DSA that also considers the global effects of the DSA. It is time for the Commission to prioritize their enforcement actions accordingly. 

Read the full letter here.