1. Baiting a racial group;
2. Baiting people, using racially-inflammatory issues or stereotypes.
Note: Some people consider making accusations of racism where there are likely none to be race-baiting. This is tricky because it hinges on the viewpoint of the person who is judging whether or not racism is involved. It is possible to underestimate the possibility of racism. Thus some people say people are using the race card when they are legitimately concerned that racism is a factor. Using the race-card in and of itself is not race-baiting. Using the race-card in order to bait people is race-baiting.
Is action against racism race-baiting if it's done in order to increase political action? I don't think so.
He was so irrationally intolerant of those unlike himself that he frequently burst out in race-baiting tirades, hoping to get into arguments with those he considered ethnically lower.