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There should be no limit to freedom of speech.
No one has a right to demand protection against being offended.
No one has ever actually been hurt by being offended. No one has ever got physically or mentally ill just because someone offended them. All that happens is they feel offended then move on and forget about it after a while.
Being offended is a state of mind the resolution of which ought to be up to the individual offended. They may dispute the offensive statement, or not.
Offense is subjective. What offends one person might not necessarily offend another. The power to judge what is offensive on behalf of every citizen is a power too great for any agency to hold and it should not be bestowed.
In some circumstances they do, such as in a private space such as a home or restaurant.
Most limits on freedom of speech have little to do with offense.