The shifting frames of the Council of Europe: from totalitarianism to authoritarianism, from populism to democratic backsliding

Over the past two decades, several European states have undergone a notable shift away from liberal democracy and human rights. These trends have disrupted the foundational discourses of the Council of Europe (CoE), which historically has positioned Europe as a bastion of human rights and democracy. Various terms – including illiberalism, populism, authoritarianism, and democratic backsliding – have been used to describe these developments. In the CoE context, 'populism' and 'democratic backsliding' have become dominant frames for defining internal trends against the image that the CoE constructs for Europe, while 'totalitarianism' and 'authoritarianism' have been used to frame its past and present external Others. This article examines how these four concepts – totalitarianism, authoritarianism, populism, and democratic backsliding – are deployed within the CoE to analyse their discursive functions across different phases of the CoE's history. Drawing on frame analysis, it traces how and to which effect these concepts have been mobilised in the CoE context. The article concludes that these concepts are employed less to denote clearly differentiated political forms or categories with distinct political and legal implications; rather, they are used as discursive tools to frame Europe as associated with human rights and democracy, in opposition to its external Others.