• Research
  • Emissary
  • About
  • Experts
Carnegie Global logoCarnegie lettermark logo
DemocracyIran
  • Donate
{
  "authors": [
    "Sarah Chayes"
  ],
  "type": "legacyinthemedia",
  "centerAffiliationAll": "dc",
  "centers": [
    "Carnegie Endowment for International Peace"
  ],
  "collections": [],
  "englishNewsletterAll": "democracy",
  "nonEnglishNewsletterAll": "",
  "primaryCenter": "Carnegie Endowment for International Peace",
  "programAffiliation": "DCG",
  "programs": [
    "Democracy, Conflict, and Governance"
  ],
  "projects": [],
  "regions": [
    "North America",
    "United States",
    "Middle East",
    "North Africa",
    "South Asia",
    "Afghanistan",
    "Southeast Asia"
  ],
  "topics": [
    "Political Reform",
    "Foreign Policy"
  ]
}

Source: Getty

In The Media

Free Speech or Incitement?

"Innocence of Muslims," the film whose video trailer indirectly led to the death of U.S. Ambassador J. Christopher Stevens among others, is not, arguably, free speech protected under the U.S. Constitution.

Link Copied
By Sarah Chayes
Published on Sep 18, 2012
Program mobile hero image

Program

Democracy, Conflict, and Governance

The Democracy, Conflict, and Governance Program is a leading source of independent policy research, writing, and outreach on global democracy, conflict, and governance. It analyzes and seeks to improve international efforts to reduce democratic backsliding, mitigate conflict and violence, overcome political polarization, promote gender equality, and advance pro-democratic uses of new technologies.

Learn More

Source: Los Angeles Times

In one of the most famous 1st Amendment cases in U.S. history, Schenck vs. United States, Supreme Court Justice Oliver Wendell Holmes Jr. established that the right to free speech in the United States is not unlimited. "The most stringent protection," he wrote on behalf of a unanimous court, "would not protect a man in falsely shouting fire in a theater and causing a panic."

Holmes' test — that words are not protected if their nature and circumstances create a "clear and present danger" of harm — has since been tightened. But even under the more restrictive current standard, "Innocence of Muslims," the film whose video trailer indirectly led to the death of U.S. Ambassador J. Christopher Stevens among others, is not, arguably, free speech protected under the U.S. Constitution and the values it enshrines.

According to initial media investigations, the clip whose most egregious lines were apparently dubbed in after it was shot, was first posted to YouTube in July by someone with the user name "Sam Bacile." The Associated Press reported tracing a cellphone number given as Bacile's to the address of a Californian of Egyptian Coptic origin named Nakoula Basseley Nakoula. Nakoula has identified himself as coordinating logistics on the production but denies being Bacile.

According to the Wall Street Journal, when the video failed to attract much attention, another Coptic Christian, known for his anti-Islamic activism, sent a link to reporters in the U.S., Egypt and elsewhere on Sept. 6. His email message promoted a Sept. 11 event by anti-Islamic pastor Terry Jones and included a link to the trailer.

The current standard for restricting speech — or punishing it after it has in fact caused violence — was laid out in the 1969 case Brandenburg vs. Ohio. Under the narrower guidelines, only speech that has the intent and the likelihood of inciting imminent violence or lawbreaking can be limited.

Likelihood is the easiest test. In Afghanistan, where I have lived for most of the past decade, frustrations at an abusive government and at the apparent role of international forces in propping it up have been growing for years. But those frustrations are often vented in religious, not political, terms, because religion is a more socially acceptable, and safer, rationale for public outcry.

In the summer of 2010, Jones announced his intent to publicly burn a copy of the Muslim holy scripture, the Koran, that Sept. 11. He was eventually dissuaded by a number of religious and government officials, including Secretary of Defense Robert Gates, who called him to say his actions would put the lives of U.S. soldiers in Iraq and Afghanistan at risk. On the Joint Chiefs of Staff, where I worked at the time, consensus was that the likelihood of violence was high.

When Jones did in fact stage a public Koran burning on March 20, 2011, riots broke out in Afghanistan, killing nearly a dozen people and injuring 90 in the beautiful, cosmopolitan northern city of Mazar-i-Sharif. Seven of the dead were United Nations employees; the rest were Afghans.

In Afghanistan, and in all of the Arab nations in transition, an extremist fringe is brawling for power with a more pluralistic majority. Radicals pounce on any pretext to play on religious feeling. I could pick out the signs of manipulation in Afghanistan — riots that started on university campuses where radicalized Pakistani students abound, simultaneous outbreaks in far-flung places, the sudden appearance of weapons. By providing extremists in Libya and elsewhere such an opportunity, the makers of "Innocence of Muslims" were playing into their hands.

As for imminence, the timeline of similar events after recent burnings of religious materials indicates that reactions typically come within two weeks. Nakoula's video was deliberately publicized just before the sensitive date of Sept. 11, and could be expected to spark violence on that anniversary.

While many 1st Amendment scholars defend the right of the filmmakers to produce this film, arguing that the ensuing violence was not sufficiently imminent, I spoke to several experts who said the trailer may well fall outside constitutional guarantees of free speech. "Based on my understanding of the events," 1st Amendment authority Anthony Lewis said in an interview Thursday, "I think this meets the imminence standard."

Finally, much 1st Amendment jurisprudence concerns speech explicitly advocating violence, such as calls to resist arrest, or videos explaining bomb-making techniques. But words don't have to urge people to commit violence in order to be subject to limits, says Lewis. "If the result is violence, and that violence was intended, then it meets the standard."

Indeed, Justice Holmes' original example, shouting "fire" in a theater, is not a call to arms. Steve Klein, an outspoken anti-Islamic activist who said he helped with the film, told Al Jazeera television that it was "supposed to be provocative." The egregiousness of its smears, the apparent deception of cast and crew as to its contents and the deliberate effort to raise its profile in the Arab world a week before 9/11 all suggest intentionality.

The point here is not to excuse the terrible acts perpetrated by committed extremists and others around the world in reaction to the video, or to condone physical violence as a response to words — any kind of words. The point is to emphasize that U.S. law makes a distinction between speech that is simply offensive and speech that is deliberately tailored to put lives and property at immediate risk. Especially in the heightened volatility of today's Middle East, such provocation is certainly irresponsible — and reveals an ironic alliance of convenience between Christian extremists and the Islamist extremists they claim to hate.

This article was originally published in the Los Angeles Times.

About the Author

Sarah Chayes

Former Senior Fellow, Democracy, Conflict, and Governance Program

Sarah Chayes is internationally recognized for her innovative thinking on corruption and its implications. Her work explores how severe corruption can help prompt such crises as terrorism, revolutions and their violent aftermaths, and environmental degradation.

    Recent Work

  • Commentary
    China Financial Markets test

      Sarah Chayes

  • Paper
    Fighting the Hydra: Lessons From Worldwide Protests Against Corruption

      Sarah Chayes

Sarah Chayes
Former Senior Fellow, Democracy, Conflict, and Governance Program
Sarah Chayes
Political ReformForeign PolicyNorth AmericaUnited StatesMiddle EastNorth AfricaSouth AsiaAfghanistanSoutheast Asia

Carnegie does not take institutional positions on public policy issues; the views represented herein are those of the author(s) and do not necessarily reflect the views of Carnegie, its staff, or its trustees.

More Work from Carnegie Endowment for International Peace

  • Article
    Rewiring the South Caucasus: TRIPP and the New Geopolitics of Connectivity

    The U.S.-sponsored TRIPP deal is driving the Armenia-Azerbaijan peace process forward. But foreign and domestic hurdles remain before connectivity and economic interdependence can open up the South Caucasus.

      • Areg Kochinyan

      Thomas de Waal, Areg Kochinyan, Zaur Shiriyev

  • Photo of Balen Shah taking a selfie with a group of Nepali adults and children.
    Article
    A New Generation Takes Power in Nepal

    The incoming government has swept Nepal’s election. The real work begins now.

      Amish Raj Mulmi

  • U.S. President Donald Trump (C) oversees "Operation Epic Fury" with (L-R) Central Intelligence Agency Director John Ratcliffe, U.S. Secretary of State Marco Rubio and White House Chief of Staff Susie Wiles at Mar-a-Lago on February 28, 2026 in Palm Beach, Florida. President Trump announced today that the United States and Israel had launched strikes on Iran targeting political and military leaders, as well as Iran’s ballistic missile and nuclear programs. (Photo by Daniel Torok/White House via Getty Images)
    Paper
    Operation Epic Fury and the International Law on the Use of Force

    Assessing U.S. compliance with the international laws of war is essential at a time when these frameworks are already fraying.

      • Federica D'Alessandra

      Federica D’Alessandra

  • Commentary
    Carnegie Politika
    Moldova Floats a New Approach to Its Transnistria Conundrum

    Moldova’s reintegration plan was drawn up to demonstrate to Brussels that Chișinău is serious about the Transnistria issue—and to get the West to react.

      Vladimir Solovyov

  • A Black man pulls a trolley. He is small in the bottom center of the frame; in the background are stacks of large, colorful shipping containers and the parts of a large crane or similar piece of equipment.
    Article
    Africa’s Global Economic Edge: Advancing Strategic Sectors

    In key sectors such as critical minerals, specialty agriculture, and fintech, Africa can become a global powerhouse by investing more in manufacturing, value-add, and scaling.

      • Kholofelo Kugler

      Kholofelo Kugler, Georgia Schaefer-Brown

Get more news and analysis from
Carnegie Endowment for International Peace
Carnegie global logo, stacked
1779 Massachusetts Avenue NWWashington, DC, 20036-2103Phone: 202 483 7600Fax: 202 483 1840
  • Research
  • Emissary
  • About
  • Experts
  • Donate
  • Programs
  • Events
  • Blogs
  • Podcasts
  • Contact
  • Annual Reports
  • Careers
  • Privacy
  • For Media
  • Government Resources
Get more news and analysis from
Carnegie Endowment for International Peace
© 2026 Carnegie Endowment for International Peace. All rights reserved.