Code of Practice on Freedom of Speech

1.1 This Code of Practice sets out the University’s values and expectations relating to freedom of speech and academic freedom and how these values and expectations are applied to University activities.

1.2 Freedom of speech means the freedom, within the law, to receive and impart ideas, opinions or information by means of speech, writing or images (including in electronic form).

1.3 Academic freedom, in relation to academic staff at the University, means their freedom within the law to question and test received wisdom, and to put forward new ideas and controversial or unpopular opinions, including their opinions about the University, without institutional censorship and without placing themselves in jeopardy of losing their jobs or privileges as further provided for in section 4 of the University’s Statute XII.

1.4 References in this Code of Practice to “University premises” mean all land, buildings, facilities or other premises in the possession of, or owned, leased, used, supervised or controlled by the University or the Oxford Students’ Union.

1.5 The Oxford colleges each have their own duty to secure freedom of speech within the law and have their own Codes of Practice on this topic.

2.1 The legal duty of UK universities to protect free speech and academic freedom is enshrined in the Higher Education (Freedom of Speech) Act 2023 (the “Act”) and is also protected under Article 10 of the European Convention on Human Rights which has effect through the Human Rights Act 1998. Academic freedom is also protected under the Education Reform Act 1988.

2.2 Part A1 of the Act states that:

(1) The governing body of a registered higher education provider must take the steps that, having particular regard to the importance of freedom of speech, are reasonably practicable for it to take in order to achieve the objective in subsection (2).

(2) That objective is securing freedom of speech within the law for—

(a) staff of the provider¹,

(b) members of the provider²,

(c) students of the provider³, and

(d) visiting speakers⁴.

(3) The objective in subsection (2) includes securing that—

(a) the use of any premises of the provider is not denied to any individual or body on grounds specified in subsection (4), and

(b) the terms on which such premises are provided are not to any extent based on such grounds.

(4) The grounds referred to in subsection (3)(a) and (b) are—

(a) in relation to an individual, their ideas or opinions;

(b) in relation to a body, its policy or objectives or the ideas or opinions of any of its members.

(5) The objective in subsection (2), so far as relating to academic staff⁵, includes securing their academic freedom.

2.3 Part A1 (8) and (9) also require the University, having particular regard to the importance of freedom of speech, to take reasonably practicable steps in order to secure that, where a person applies to become a member of academic staff of the provider, the person is not adversely affected in relation to the application because they have exercised their academic freedom.

2.4 Part A2 of the Act states further that the governing body must maintain a code of practice setting out certain matters related to freedom of speech, which are addressed in this document.

Footnotes:

^1. “Staff of the provider” means (a) an employee of the University or other person working for the University under a contract of employment, including, without limitation, a fixed-term contract, a zero-hours contract, an hourly-paid contract or other type of casual or atypical contract of employment; or (b) an individual who has entered into or works under any other contract with the University, whether express or implied and (if it is express) whether oral or in writing, whereby the individual undertakes to do or perform personally any work or services for the University and the University’s status is not by virtue of the contract that of a client or customer of any profession or business undertaking carried on by the individual.

^2. "member” includes someone with either: “student membership”, “Congregation membership” or “additional membership” of the University under Statute II. It does not include a person who is a member of the provider solely because of having been a student of the provider. This means that Ordinary Members and Convocation members are only included to the extent of the exercise of their function under Statute III.

^3. A “student” means a person undertaking, or with a binding offer to undertake, a course of study or a programme of research at the University (or that leads to an award granted by the University). This includes students not on credit-based programmes.

^4. A “visiting speaker" means a person who has been invited to speak at the University by a member, student or University employee acting in their capacity as a member, student or University employee. It does note include a person who wanted or requested an invitation to speak but was not invited. It may include a person whose invitation has not been approved through an internal approvals process.

^5. A member of “academic staff” is an employee of the University who is employed, or otherwise engaged, for the purpose of teaching or conducting research.

Values⁶

3.1 Freedom of speech within the law and academic freedom are central tenets of university life and must be robustly protected.

3.2 In all its activities, the University of Oxford seeks to:

(1) secure and promote civic and academic freedoms including freedom of speech;

(2) ensure a very high level of protection for the lawful expression of a viewpoint and for speech in an academic context; and

(3) foster a culture of openness and inclusion, in which members of our community engage with each other, and the public, in debate and discussion, and remain open to both intellectual challenge and change.

3.3 Inevitably, this will mean that members of the University are confronted with views that some find shocking, disturbing or offensive. The University believes that a culture of free, open and robust discussion can be achieved only if all concerned engage critically but courteously with each other.

Footnotes

^6. The University’s EDI Strategic Plan sets out the University’s values that express the ethos of its approach to equality, diversity and inclusion. They are: curiosity, courage, community and excellence.

4.1 The University is committed to fostering an inclusive culture which promotes equality, values diversity and maintains a working, learning and social environment in which the rights and dignity of all members of the University community are respected. In accordance with its Harassment Policy, the University does not tolerate any form of harassment or victimisation and expects all members of the University community, its visitors and contractors to treat each other with respect, courtesy and consideration.

4.2 Within the bounds prescribed by law, all voices or views which any member of our community considers relevant should be able to be heard. Wherever possible, they should also be exposed to evidence, questioning and argument. As an integral part of this commitment to freedom of expression, we will take steps to ensure that all such exchanges happen peacefully and respectfully. With appropriate regulation of the time, place and manner of events, members of our community should have no reasonable grounds to feel intimidated or censored.

4.3 Peaceful protest is a legitimate expression of freedom of speech. However, such protest must not  cause substantial disruption to University activities. The respect which the University expects all members of the University community to demonstrate towards each other is particularly important where it comprises respect for the right of others to speak freely and exercise their academic freedom. Staff, students and members of the University wishing to protest either on University Premises or on non-University premises in a manner which may disrupt University activities, must seek permission in advance by referring the matter under the procedures for University Meetings and Events set out in section 6 of this Code. Carrying out such protests without permission may lead to disciplinary action under the relevant procedures (as set out in paragraph 4.4). The University may also take action to remove any unauthorised encampment or occupation under its common law power of removal or by court proceedings.  The Proctors have published Guidance on Demonstrations or Protests which is available as Annex B to this Code.

4.4 Complaints about the behaviour of individuals should be made under the appropriate procedure:

(a) Complaints about staff members⁷ should be made under the appropriate staff procedure, such as the University’s Policy and Procedure on Harassment;

(b) Complaints about students should be made under Statute XI and the Student Disciplinary Procedure: Non-Academic Cases;

(c) Complaints about others should be made to the relevant Head of Department.

4.5 Complaints that arise in a college context (ie in the course of college activity or on college premises) should normally be made to the appropriate college.

4.6 All activity must be risk assessed and planned in accordance with the ‘University statement of health and safety policy’.

Footnotes:

^7. Staff members in this context means University employees employed under the University’s academic, academic-related and support staff contracts of employment.

5.1 The Act requires that this Code of Practice sets out procedures to be followed in connection with the organisation of meetings and other activities at Oxford.

5.2 The University ensures that its teaching, research, curriculum, policies and procedures reflect its duties to ensure, so far as is reasonably practicable and having particular regard to their importance, freedom of speech and academic freedom within the law.

5.3 This Code of Practice therefore applies to the University procedures to be followed by staff and students when organising any activities that relate to academic life, whether those activities take place on or off University premises, including activities relating to: admission, appointment, reappointment, employment and promotion of staff, disciplinary matters, equality, diversity and inclusion, fitness to practise, fitness to teach, harassment and bullying, IT, social media, Prevent duty, principles of curricular design, academic integrity in research (i.e. research ethics), speaker events, the Code of Discipline in Statute XI. It also applies to procedures to be followed by the Oxford Student Union when organising any such activities.

5.4 In making any decision under any of these procedures or otherwise, or adopting any policy that could directly or indirectly (and positively or negatively) affect freedom of speech, the University will take into account:

(a) the importance of academic freedom (as required eg by the Education Reform Act 1988 and the Act);

(b) the requirements set out in the Act including the need to take reasonably practicable steps, having particular regard to the importance of freedom of speech, to ensure that freedom of speech within the law (including academic freedom) is secured;

(c) the rights and freedoms enshrined in the European Convention on Human Rights and incorporated into domestic law by the Human Rights Act 1998;

(d) the Public Sector Equality Duty which requires universities to have due regard to the need to eliminate unlawful discrimination, promote equality of opportunity, and foster good relations between different groups ; and

(e) the Counter-Terrorism and Security Act 2015 which requires universities to ‘have due regard to the need to prevent people from being drawn into terrorism’ (section 26 (1)) and which also provides that ‘when carrying out the duty imposed by section 26 (1)’, universities ‘must have particular regard to the duty to ensure freedom of speech; and to the importance of academic freedom.’

5.5 A breach of this Code may lead to disciplinary action being taken under the appropriate University procedure (including staff disciplinary procedures for staff⁸ or the Student Disciplinary Procedure: Non-Academic Cases for students).

5.6 Complaints that the University has breached its duties in relation to freedom of speech under the Act may be raised by any of the individuals listed in section 2.2(2) and 2.3 above. Complaints may also be brought by a person who was formerly within one of those categories, where their complaint relates to events which occurred while they had that status and which impacted them in that capacity. The appropriate procedure for raising such complaints is as follows:

(a) complaints by members of staff which are related to other complaints and/or form part of an existing complaint, and/or fall under the scope of another staff procedure, should be raised within the relevant staff procedure and/or procedure associated with those other complaints (eg the grievance or Harassment or disciplinary procedure);

(b) complaints by students or former students should be raised within the relevant student procedure (eg the Student Complaints Procedure or the Harassment Procedure etc);

(c) other complaints should be raised under the Freedom of Speech Complaints Procedure [https://compliance.admin.ox.ac.uk/freedom-of-speech/complaints-procedure] and should be addressed to registrar@admin.ox.ac.uk within 3 months of the matter(s) complained about (which can be extended where there are strong reasons to do so).

On receipt of any such complaint, the receiving department will consider the most appropriate procedure to be followed, in consultation with relevant colleagues and the complainant and in some cases they may refer the matter to be considered under a different more appropriate procedure.

Footnotes:

^8. The University’s staff disciplinary procedures apply to University employees employed under the University’s academic, academic-related and support staff contracts of employment.

7.1 The University will periodically review the contents and operation of this Code of Practice and report on its operation and recommend amendments to it for consideration by Council as appropriate or necessary.

A1. This Annex is issued under section 6.2 of the University’s Code of Practice on Freedom of Speech (the “Code”).

A2. Where a meeting or event falls under section 6.2 (a)-(f) of the Code, the Organiser should be formally notified to the Deputy Marshal in the Proctors’ Office using an Event Referral Form. The form must be completed and submitted at least twenty (20) working days in advance of the meeting or event. If less notice is given the Proctors’ Office will seek to consider the matter in the reduced timeframe if there are compelling reasons why the meeting or event cannot be delayed and if it is reasonably practical to do so. However, if there are no compelling reasons why the event cannot be delayed and/or if it is not practically possible for the Proctors’ Office to make the necessary arrangements in the reduced time, the organiser may need to organise and fund security independently.

A3. In the context of this Code, the Proctors are entrusted with the duty to assess the implications of events formally referred to them and to act in accordance with the University’s legal responsibilities, including the conduct and procedures in this Code.

A4. On receipt, the case will be assessed by the Deputy Marshal who will consult with a Proctor.  The starting point, for a Proctor considering a particular Event Referral Form, will be that the event should be allowed unless there are compelling and exceptional reasons for it not to proceed.

A5. As required by section 12 of the Terrorism Act 2000, the Proctor will not give permission to hold a meeting or event where it is known that:

(a) the proposed speaker belongs to, or professes to belong to, a proscribed organisation; or

(b) the proposed speaker will use the event to support, or to further the activities of, a proscribed organisation.

A6. In exceptional circumstances, it may be reasonable to refuse permission for a University meeting or event where the Proctor reasonably believes (from the nature of the speakers or from similar activities in the past whether held at the University or otherwise) that:

• the views likely to be expressed by any speaker are contrary to the law;
• the intention of any speaker is likely to be to incite breaches of the law or to intend breaches of the peace to occur;
• the meeting is likely to include the expression of viewpoints that are reasonably believed to be highly controversial and the organisers will not permit contrary or opposing viewpoints to be expressed;
• the views likely to be expressed by any speaker are for the promotion of any illegal organisation or purpose, including organisations listed on the government’s list of proscribed terrorist groups or organisations;
• the event is a protest which involves any person occupying, sleeping at, residing on or setting up camp on University Premises;
• the event is likely to involve the use of University Premises for any purpose or in any manner that may cause damage to University premises or loss, damage, or injury to any person or put the University in breach of any law or obligation (contractual or otherwise) to any person;
• the event is likely to cause substantial disruption to University activities which cannot be mitigated by conditions imposed by the Proctor under paragraph A8;
• it is in the interest of public safety, the prevention of disorder or crime, that the meeting does not take place.

A7. The lawful expression of controversial or unpopular views will not in itself constitute reasonable grounds for withholding permission for a University meeting or event.

A8. Where the Proctor is reasonably satisfied that the otherwise lawful expression of views at an event or meeting on University Premises is likely to give rise to disorder or threats to the safety of any person, they shall consider what steps it is necessary to take to ensure the safety of all persons and the security of University Premises. This might include postponing or relocating a meeting or event or imposing conditions. The responsibility for fulfilling these conditions rests with the Organiser.

A9. Except as set out in A10 below, the University will cover the following costs of security for using the University’s premises for a meeting or event falling under this Code of Practice:

• The costs of the University’s in-house Proctors’ Officers team which is likely to be able to provide up to 6 persons to facilitate the safe running of an event;
• Additional costs of up to £2,000 per event for provision of a specialist risk assessment and external security cover (including for bag search requirements and specialist provision that require Security Industry Authority (SIA) licenced staff).

A10. The University will not cover the costs of security for using the relevant premises in the exceptional circumstances that the cost of security exceeds these parameters or where the visiting speaker could reasonably be expected to have their own security because of the political or state office they hold (in which case the Proctors’ Office will not usually be involved in security arrangements). The University will also not cover the security costs for using the relevant premises for individuals who do not fall within the categories listed at 2.2(2) above or where the meeting or event is a commercial booking¹¹ where there is no relation between the event and the objective of securing freedom of speech within the law for those listed at 2.2(2) of the University’s Code of Practice on Freedom of Speech.

A11. Any request to pay security costs will not be influenced (so far as is consistent with the law) by the ideas or opinions of any individual involved in organising the event or meeting, or by the policy or objectives of, or the ideas or opinions of any of the members of, any body involved in organising the event.

A12. In the exceptional event that security costs are to be passed on to the organiser of the event, the Proctors’ Office will supply the organiser of the event with a clear written summary of its calculation of the expected security cost and an explanation for this calculation. That summary may be appealed by submitting an appeal in writing to the University Registrar.

A13. In the exceptional event that the Proctor reasonably considers that the risks cannot be mitigated by the imposition of conditions, or the Organiser refuses to comply with the Proctor’s conditions, the Proctor has the right to refuse consent for the meeting or event to go ahead and/or cancel the meeting or event and they may do so even if an Event Referral Form has not been provided.

A14. If the Organiser does not comply with the Proctor’s conditions or goes ahead with the meeting or event after the Proctor has refused consent or cancelled the meeting or event then such action may lead to disciplinary action under the relevant procedures (as set out in paragraph 4.4) and where relevant the University may remove any unauthorised encampment or occupation under its common law power of removal or by court proceedings.

A15. The Proctor will communicate their decision promptly and will set out the reasons for the decision.

A16. If any of the individuals listed in section 2.2(2) and 2.3 above is dissatisfied with the decision of a Proctor in relation to a meeting or event they may refer the matter under the relevant complaints procedure set out in section 5.6 above.

Footnotes:

^11. Whether a commercial booking is in scope of the duty relating to security costs depends on whether there is any relation between the commercial event and the objective of securing freedom of speech within the law for the classes of persons set out at A1(2). If there is no relation, the commercial booking would not be captured. However, if a commercial entity hosts an event to which staff, members or students are invited, this may be likely to be captured. As soon as an event involves persons within the categories set out in the objective at A1(2), the provision would be likely to apply.

This Guidance was issued by the Proctors on 21 September 2025 and should be read in conjunction with the University’s Code of Practice on Freedom of Speech (the “Code”).

The University upholds freedom of speech within the law, as outlined in the University’s Code of Practice on Freedom of Speech. 

Free, open and robust discussion is essential to our academic community. However, such a culture can only be maintained when all participants engage with each other in ways which may be critical but which are courteous.  The University does not tolerate harassment or victimisation in any form. We expect all members of the University community, as well as visitors and contractors, to treat each other with respect, courtesy, and consideration. Please refer to the University policy on harassment.  

The University is committed to fostering an inclusive culture that promotes equality and which values diversity. The University has a responsibility to maintain a safe, effective, and welcoming environment for all our students, staff, and visitors. 

A demonstration or protest will fall within the University’s procedures for meetings and events (as set out in section 6 of the Code of Practice on Freedom of Speech). As such organisers must contact the Proctors’ Office in advance, following the procedure set out in the Code, and a risk assessment will be required. The Proctors have a duty to facilitate protests and will work with organisers to ensure that protests can take place but do not violate the University Statutes and hence result in disciplinary procedures. The Proctors can be contacted through deputy.marshal@proctors.ox.ac.uk. 

University members participating in protests are required to identify themselves to University officials when reasonably requested to do so. Failure to do so is a breach of section 5(1)(b) of Statute XI which all students with a contract to study at Oxford must abide by.  

Students will face disciplinary investigation if the University Statutes are breached. The following extract from Statute XI are examples of clauses in the Statutes which are relevant to protests: 

5. (2) No member of the University or student member shall (or shall attempt to):

(a) disrupt or obstruct any of the teaching or study or research or the administrative, sporting, social, cultural, or other activities of the University, or of its members, or its officers, employees and agents, including by disrupting or obstructing the lawful exercise of freedom of speech by any of those persons or by visiting speakers. However, it shall not be a disciplinary breach to engage in protests permitted by the Proctors under the Code of Practice on Freedom of Speech;

(b) deface, damage, or destroy any property of the University or any college or any other person, or knowingly misappropriate such property, including by its unauthorised occupation;

(c) engage in action which is likely to cause injury or to impair safety;

(d) engage in violent, indecent, disorderly, degrading, humiliating, or threatening behaviour or language, or in any harassment, bullying, or sexual misconduct towards any other person, or mistreat any animal;

Contravening any Statute may lead to the following possible consequences:

Category 1 Breach: conduct which is considered sufficiently serious to require disciplinary proceedings, but at the lowest end of the spectrum, including matters where an appropriate penalty or penalties is/are likely to be a written warning and/or a fine of up to £300.

Category 2 Breach: conduct where an appropriate penalty or penalties is/are likely to be: a formal warning (but only alongside other measures), a ban from particular premises (including a total ban from University premises for up to six months), an education programme, removal of alumni benefits, a limited period of suspension of up to one month and/or a fine of £300-£1000.

Category 3 Breach: a matter where an appropriate penalty or penalties is/are likely to be: a long-term ban including a total ban from University premises of over six months, a period of suspension for between one month and one year, removal of alumni benefits, a recommendation that a College do not approve supplication for the MA, or a fine exceeding £1000.

Category 4 Breach: the most serious matters, including conduct where the likely penalty is suspension for a year or more, expulsion, a recommendation that a College do not approve supplication for the MA, or asking Council to recommend expulsion from Ordinary or Convocation membership.

Further information is available in the Student Disciplinary Procedure: Non-Academic Cases.

In addition to actions that the University may take under its Statutes, unauthorised occupation of University land or buildings may lead to legal action including the University issuing court possession proceedings or exercising its common law power of removal.