A/66/313 implement articles 19 to 22 of the International Covenant on Civil and Political Rights, which guarantee the rights to freedom of expression, assembly and association and determine the limitations thereto. In this regard, he emphasizes that States should never lose sight of the fact that the ultimate goal, while addressing the issue of incitement to national, racial or religious hatred, is to find the most effective ways through which individuals can be protected from advocacy of hatred and violence by others. 71. Legal responses are far from being sufficient to bring about real changes. Indeed, legislative measures should be complemented by a much broader set of policy measures, such as affirmative action; the collection of ethnically disaggregated data and statistics; human rights training of State agents; and educational and awareness-raising measures to foster mutual understanding, respect and tolerance. 72. The design and implementation of affirmative action measures or programmes are recommended, including to redress the historical inequalities experienced by certain groups of individuals such as people of African descent, Roma and the victims of discrimination based on work and descent. In this regard, the Special Rapporteur urges States to develop and implement special measures in line with general recommendation No. 32 of the Committee on the Elimination of Racial Discrimination, and the Durban provisions. 73. Racism and racial discrimination within State institutions is a reality that States should not deny. In this regard, the Special Rapporteur recommends that States strengthen the capacity of law enforcement agents and members of the judiciary through regular, adequate and mandatory human rights training activities focusing on racism, racial discrimination, xenophobia and related intolerance, that will also cover racist and xenophobic crimes perpetrated by individuals closely linked to extremist political parties, movements and groups, including neo-Nazis and skinhead groups. 74. To address the root causes of racism and racial discrimination within society and build a society based on tolerance, respect for cultural diversity and non-discrimination, the Special Rapporteur strongly recommends that States invest in education. In this regard, the Special Rapporteur would like to emphasize in particular the importance of history classes in teaching the history of people of African descent, Roma and other communities, their culture and positive contributions, as well as the grave human rights violations they have suffered in the past. He further recalls that human rights education is a major tool in countering the rise of extremist political parties, movements and groups. 75. States should also raise awareness and challenge long-entrenched perceptions to help to shape public opinion towards fairer and more equitable societies. Awareness-raising measures to inform and sensitize populations should therefore complement education efforts. In this regard, the Special Rapporteur calls upon national human rights institutions to develop appropriate programmes to promote tolerance of, and respect for, all persons and all human rights, and to combat extremism. 76. Furthermore, particular attention should be paid to the victims. In this respect, the Special Rapporteur urges States to guarantee to victims of racism 20 11-45818