I don't trust any government to decide (as they would lean towards quashing dissent or criticism), nor do I trust tech companies to decide (as they would lean towards arbitrary manifestations of their own cultures, usually based in specific parts of the US, and usually ignorant of cultures outside the US). The sensibilities of what constitute 'free speech' is not universal.
What's worked somewhat well in the UK is our regulatory bodies, such as Ofcom and Ofgem. I won't say they're perfect but they tend to strike a balance between companies' interests and protecting the public. If you're looking to define and regular 'legal but harmful' then it's better to shift that responsibility of defining and enforcing to such a body.