A 'Seminal Moment' in Football's Fight Against Racism? An Overview of UEFA's Three-Step Protocol

The European Qualifier between England and Bulgaria last night was twice halted for abhorrent, racist abuse subjected towards a number of the England players. The warning signs had been present prior to the match; in the last meeting between the two sides in 2011, Ashley Young was the recipient of monkey chants by the Bulgarian fans. Moreover, UEFA had ordered the Bulgarian Football Union to close a minimum of 5000 seats for the game against England due to "racist behaviour" by fans during the Bulgarian national team's losses against the Czech Republic and Kosovo in June 2019.

Over the weekend the three-step protocol, approved by the UEFA Executive Committee in 2009, to be implemented by referees in the event of racism during a game was the key talking point. Unfortunately, the implementation of the protocol did make its debut in Sofia; but how does it work and what sanctions can UEFA apply?

The three-step protocol:

• Step 1: If racist abuse is heard or reported, the referee must stop the match and instruct the stadium authorities to read out an announcement, calling upon the spectators to stop the discriminatory behaviour.
• Step 2: If this announcement does not have the desired effect, make another announcement, suspend the match and send the players to their dressing rooms for a specific period.
• Step 3: After consultation, abandon the match if the discriminatory behaviour still does not cease or breaks out again.

It has been reported that steps 1 and 2 were enacted in Sofia.

Regarding sanctions, Article 14(1)-(2) of the UEFA Disciplinary Regulations 2019 states that if a member association's supporters "insult the human dignity of a person or group of persons on whatever grounds, including skin colour, race…" then the member association is punished with a minimum of a partial stadium closure. However, as this will likely be seen as a second offence by Bulgarian fans, Article 14(3) will apply – a punishment of one match played behind closed doors and a fine of €50,000. Article 14(4) gives UEFA wider scope to sanction however, stating that "if the circumstances require it" disciplinary measures such as the playing of one or more matches behind closed doors, a stadium closure, the forfeiting of a match, the deduction of points and/or disqualification from the competition may be handed down.

We will have to wait patiently to see UEFA's disciplinary action in light of last night's events.

Some are of the opinion that the primary enactment of the three-step protocol was a landmark moment in football's battle with racism, paving the way for other referees to also make the decision to follow the protocol. However, Kick It Out has released a statement criticising UEFA for failing to properly implement the second and third steps:

"We are encouraged that the protocol was initially enforced by the match officials, but UEFA must explain why players weren’t sent to the dressing room during Step Two, as is clearly stated in the rules. TV footage also clearly shows that racist abuse continued in the second half, so it is unacceptable that Step Three was not enforced. This match should have been abandoned by the officials."

A definite step forward was taken in the tackling of racism in football last night, but more can be done. Whether it is through new, tougher guidelines for referees to implement or proper enforcement of the current protocol, football's governing bodies are very much under the spotlight. Here's to hoping the events in Sofia can be used as the much needed catalyst for change. 

Update: The President of the Bulgaria Football Union, Borislav Mihaylov, has resigned following Bulgaria Prime Minister Boyko Borissov calling upon him to quit. Although the BFU stated the resignation "is a consequence of the recent tensions" creating "an environment that is detrimental to Bulgarian football and the Bulgarian Football Union", racism was not mentioned as a factor. Interestingly, the Bulgarian Prime Minister sighted the national team's "shameful loss" as to why Mihaylov needed to resign. This can only be seen as a wasted opportunity for the leaders of football and politics in Bulgaria to make a stand against such discriminatory behaviour. 

In contrast, UEFA president Aleksander Ceferin has responded strongly, stating that the "football family and governments" need to "wage war on the racists". We can only wait to see if these words will be put into action.