sou · GXB376 · 2009-09-29 00:00:00 — This requires close cooperation between the ministries involved – mainly the and the Ministry for Foreign Affairs – and other actors, and clear governance of international activities in the courts and agencies of the legal system. According to the Commission, where the joint preparation systems of the Government Offices do not prove satisfactory, consideration should be given to setting up a function at the Prime Ministers Office tasked with ensuring that governance at the Government Offices in this area is uniform and consistent. The Swedish Prosecution Authority, which currently only sporadically takes part in international activities other than its core activities, i.e. criminal investigations at different levels, should participate more extensively in civilian crisis management initiatives and development cooperation. The Government should make more extensive use than at present of instructions, appropriation directions and other policy instruments to steer the international activities of the legal system. The wording of the relevant sections of the policy documents concerning the Swedish courts (the ), the Swedish Prosecution Authority, and the Swedish Prison and should be identical. The international assignments that these agencies are expected to be prepared to work on should be clearly defined. The various parts of the legal system should likewise formulate strategies and policy documents providing more concrete definitions of these activities. All Swedish international activities take place in the context of international commitments and are based on needs and demands that vary with time. However, to achieve the greatest possible synergy effects, Swedish efforts should be concentrated to more concerted initiatives where possible. Within these frameworks, assignments should be prioritised that can provide Swedish agencies core activities with experience and information. The same applies to areas of knowledge where can be regarded as having a particular advantage. If possible, regions that are close to geographically and in terms of their legal cultures should also be given priority. The focus should not only lie on criminal law cooperation but also to a high degree on constitutional law and civil and administrative law. Greater interaction between crisis 34 SOU 2009:76 Summary management and development cooperation – and with other types of international missions –should be striven for. Skills and preparedness in both civilian crisis management and development cooperation are desirable within the various parts of the legal system. At present there are central support functions for the administration of international assignments at the , and the Swedish Prison and . A similar support function should also be set up at the Swedish Prosecution Authority. A special reference group is linked to the central support function at the . It would be appropriate for the central support functions at the Swedish Prosecution Authority and the Swedish Prison and to be supported in turn by reference groups or similar functions. To provide coordination between the legal system and other international actors, a council for coordinating international assignments should be set up, consisting of representatives from the different parts of the legal system, the Ministry for Foreign Affairs, the , . The should lead the councils work. The council should – in the light of national strategy – formulate a holistic approach concerning the legal systems participation in international assignments, identify priority areas and take account of the necessary interplay between civilian crisis management and development cooperation. The legal system should strive to increase collaboration with other Swedish international actors, including Sida, the legal profession, non-governmental organisations and the Swedish Armed Forces. Agencies and organisations taking part in civilian crisis management initiatives and development cooperation should also form a national network. In view of the coordinating role within its field, the Academy should be tasked with coordinating and managing this network and its activities . should also play a coordinating and representative role for when Nordic cooperation increases in the future, as is hoped. As regards civilian crisis management initiatives, the agency posting staff abroad should also be the employing agency. For staff participating in development cooperation, no change should normally be made in employment conditions. Because of the risk of damaging confidence, it is not advisable for people in the legal sys35 Summary SOU 2009:76 tem to form their own companies for the purpose of taking part in development cooperation. Staff who are seconded (as opposed to receiving their assignments directly from the UN or the EU, for example) to international tribunals and courts should always be posted abroad by the as the employing agency. The judiciary and the legal system agencies are best suited to manage recruitment for the legal systems international assignments. Such recruitment requires there to be a well developed register of experts at every agency. Candidates should undergo quality checks before their name is forwarded to the Government Offices. Only those people who have the best chances of achieving success in their candidature should be nominated. The legal system should come together on policy issues concerning recruitment. It is important that international professional functions are defined and given a clear focus. Each employing agency should be responsible for recruiting staff falling within its own sphere of activities. To broaden the recruitment base for international missions, the legal system should seek to make it easier for people interested in being posted abroad to obtain leave from their ongoing tasks and should spread information on missions to staff and management. Special initiatives should be taken to attract people suitable for leading positions and to attract women to posts at all levels. In different ways, the agencies should make it easier for candidates to achieve success in international selection procedures. To ensure that recruitment of staff from the court and prosecution systems guarantees quality while being as practical as possible, preparation should take place within the international office of the and the central support function that should be built up at the Swedish Prosecution Authority. council at the , the prosecution systems Committee and the reference group that should be set up for the Swedish Prosecution Authority should provide assistance when formulating candidates specifications but not otherwise take part in preparation. should actively work in the EU to promote a simplified and more transparent recruitment system. Swedish actors should cooperate and exchange experiences on this system. The legal system should pay attention in different ways to the problems of accompanying partners and other issues related to the 36 SOU 2009:76 Summary families of posted staff, via information to relatives, good opportunities for contact between people posted abroad and their relatives , and – to the extent appropriate in terms of security and otherwise – a pre-determined number of trips home or visits. The legal system should work towards implementation of Resolution (2000) Women, Peace and Security in international activities. Implementation of this Resolution has been followed up by a number of agencies and organisations in the GenderForce project. The Commission supports the proposals presented within this project. Courses on gender and information about the Resolution should be part of the training, both for recruiting staff and for the staff who are to be posted abroad to international civilian crisis management missions. An important part of this training is information on the code of conduct that applies. The planning of international development cooperation should also be based on the Resolutions objectives. Implementation of the Resolution can be followed up via seminars and networks. The length of overseas service, and how frequent these postings should be, should be determined by each agency sending staff abroad. Some agreement should however exist between the various actors on these issues. Employees from the legal system taking part in civilian crisis management missions should have leave of absence from their other civil service employment during their overseas service without requiring a special decision. The starting point should be a generous approach concerning employees international assignments on the part of employers. To create real opportunities for judges and prosecutors to take part in international assignments, there must be replacements for them, primarily through established replacement systems, reinforcement initiatives and advertisements for substitutes. The issue of replacements should be solved in dialogue with the respective manager at the earliest stage possible. Posting staff who are skilled and otherwise suitable for the job to international assignments is crucial for confidence in international efforts. Quality should therefore take place both before, during and after the assignment and be conducted by the agency responsible for the posting. Those within the legal system taking part in international assignments develop their skills in various respects, which should be given special credit as regards their careers and salaries. During overseas service, staff should as far as possible be given the oppor37 Summary SOU 2009:76 tunity to keep themselves informed on developments at home in the area of human resources. People who have taken part in missions abroad should be given the opportunity for a special performance review interview with the senior manager involved or other suitable person, and provide information about their experiences at their own workplace. To clarify the purpose and contents of the overseas mission, special assignment descriptions should be drawn up. The issue of credit assessment should also be discussed in consultation between the for Government Employers and its members. It would also be appropriate for the various parts of the legal system to develop forms for awarding recognition for international contributions to members of staff who have returned. The legal system should keep people who are interested in international assignments regularly informed about their applications and about the various stages of posting procedures. It is therefore important that the Government Offices also provides each agency with all the information available about nominations, etc. should be tasked with producing a manual with general information on participation in international civilian crisis management. Before participating in civilian crisis management missions, judges and prosecutors should be offered training organised by . This training should be designed in consultation with the and the Swedish Prosecution Authority. Multifunctional courses with both civilian and military staff should also be further developed. Apart from basic training and pre-mission training, there should also be an opportunity for supplementary training such as language training and training in country knowledge. Participants in international development cooperation should also be given the opportunity for training. To increase awareness of international missions in the agencies that may be relevant for posting staff abroad, it is also essential for the management of these agencies to be given training and information about these international activities. should be given a coordinating role with regard to equipment and logistics. It would also be appropriate for the to be tasked with duty desk services for all staff in the legal system, via Rikskommunikationscentralen (the ). The agencies posting staff abroad are responsible for following up staff returning home. The return home can be facilitated by 38 SOU 2009:76 Summary debriefing and other reporting from the overseas posting. should be tasked with sounding out whether there is interest in a network and for staff returning to . Labour and social law issues It is important that all staff who are sent abroad by Swedish agencies and working under equivalent conditions are covered by uniform labour and social law terms. For this reason, as is the case regarding employees in the overseas staff of the Swedish Armed Forces and those of the , employment conditions for civil servants in certain international civilian assignments should be legally regulated and not be determined solely through contracts. Legal regulation of employment conditions for civil servants in certain international civilian assignments should, according to the Commission, be based on the corresponding regulations for staff of the Swedish Armed Forces in international military operations, primarily the regulations proposed by the government commission concerning veteran soldiers (SOU 2008:91). The new provisions, for which the Commission presents proposals, should cover forms of employment, the working environment, special follow-up responsibility, support measures in the event of injury and illness and support and compensation to close relatives. These provisions should apply to all staff posted abroad by the legal system for work in international crisis management missions. Under the Commissions proposals, they should also apply to other civilian staff posted abroad by government agencies to international civilian crisis management missions. This means that they will include staff that and the post abroad to such missions. Criminal jurisdiction Staff posted abroad to take part in international missions are usually covered by what are termed status of mission agreements. These regularly exempt crimes committed by staff posted abroad from the host countrys criminal jurisdiction. This is based on the assumption that another state has criminal jurisdiction over such crimes. Summary SOU 2009:76 The authority of a Swedish court to pass judgment on crimes committed abroad is normally conditional on the crime also being punishable in the country where it is committed – dual criminality. Crimes committed while in service by someone employed in the overseas staff of the Swedish Armed Forces and the are, however, exempted from the requirement of dual criminality . There is however, no corresponding exemption for other staff posted abroad to international missions. This means that there is a risk that crimes committed by such staff cannot be prosecuted in , and that fails to comply with its international commitments to maintain full criminal jurisdiction over civilian staff posted to international assignments. Swedish jurisdiction should therefore be extended by further exemptions being made from the requirement of dual criminality for prosecution in . Under the Commissions proposal, the new exemption from the requirement of dual criminality should be incorporated into Chapter 2, Section 3 of the Swedish Penal Code. It should be generally formulated and include Swedish citizens or aliens resident in taking part in an international assignment in which participates. This regulation supplements the existing exemptions from the requirement of dual criminality regarding certain professional groups. The concept of international assignments primarily refers to civilian crisis management missions, development cooperation and work at international tribunals and courts. The international assignments to which this may apply will probably usually be initiated by the UN, the or the EU. For the regulation to be applicable, it must be a question of an assignment in which participates. This expression pertains to the principle of state protection, i.e. that should have a justified interest in prosecution taking place in . The new exemption from the requirement of dual criminality should not be limited to crimes committed in the course of ones duties, but should also include all crimes committed during service abroad. It should be possible to prosecute crimes covered by the new exemption without special authorisation to prosecute. For the extended provision on jurisdiction to have the desired effect, an extension of Swedish substantive criminal legislation regarding the crime of breach of duty is required. In view of ongoing preparatory work on this subject, the Commission does not present any concrete proposal regarding such an extension, but indicates a possible solution. SOU 2009:76 Summary 41 The Commission proposes that its proposed legislative amendments enter into force on 1 January 2011. Författningsförslag 1 Förslag till lag (0000:00) om personal i internationella civila krishanteringsinsatser Härigenom föreskrivs följande. Lagens tillämpningsområde 1 § Denna lag ska tillämpas då en statlig myndighet organiserar anställda att delta i internationella civila krishanteringsinsatser. Sådan myndighet kallas här anställningsmyndighet. Lagen ska dock inte tillämpas på den som är lokalt anställd av anställningsmyndigheten utomlands. Med internationell civil krishanteringsinsats avses ett icke-militärt internationellt uppdrag, vari tar del. Insatserna beslutas av regeringen eller av myndighet som regeringen bestämmer. För anställda i Försvarsmakten finns särskilda bestämmelser. Anställning 2 § Den som ska tjänstgöra i en internationell civil krishanteringsinsats och inte redan har en anställning hos anställningsmyndigheten ska anställas särskilt hos denna för tjänstgöring i en sådan insats. 3 § En anställning enligt 2 § ska vara tidsbegränsad och avse tiden för både utbildning och tjänstgöring. Anställningen får dock tidsbegränsas till att avse endast utbildningstiden eller tjänstgöringstiden. För den som anställs enligt första stycket ska bestämmelserna i 15–17 §§ lagen (1982:80) om anställningsskydd inte gälla. Författningsförslag SOU 2009:76 4 § För den som tjänstgör i en internationell civil krishanteringsinsats ska följande bestämmelser inte gälla: 1. 12 § semesterlagen (1977:480) och 2. arbetstidslagen (1982:673). Arbetsmiljö 5 § För den som tjänstgör i en internationell civil krishanteringsinsats ska följande bestämmelser i arbetsmiljölagen (1977:1160) gälla utomlands, om inte tjänstgöringsförhållandena hindrar detta: 1. 2 kap. 1–8 §§, 2. 3 kap. 1–4 §§, § första och andra styckena samt 12 §, 3. 6 kap. 1–6 §§, 6 a § första stycket första och andra meningarna och andra stycket samt 8 och 9 §§. Särskilt uppföljningsansvar 6 § ska följa upp och utreda om den som tjänstgjort i en internationell civil krishanteringsinsats drabbats av skada till följd av tjänstgöringen utomlands. Uppföljningen och utredningen ska ha den form och den omfattning som motiveras av förhållandena under tjänstgöringen utomlands. Åtgärderna ska innefatta personlig kontakt, om detta inte kan anses uppenbart obehövligt eller är omöjligt att genomföra. ansvar enligt första och andra styckena kvarstår efter det att tjänstgöringen avslutats. 7 § ska lämna information och råd i olika frågor till den som tidigare tjänstgjort i en internationell civil krishanteringsinsats även som anges i 6 §. Stödåtgärder 8 § Om någon drabbas av skada under resa till eller från tjänstgöringsplatsen utomlands eller under tjänstgöringen där, ska anställningsmyndigheten i samråd med den skadade och andra berörda myndigheter utreda och vid behov lämna stöd för att underlätta för denne att 44 SOU 2009:76 Författningsförslag 1. återgå till tidigare livssituation, 2. återfå full arbetsförmåga eller 3. kunna försörja sig genom förvärvsarbete. 9 § I fall som avses i 8 § ska anställningsmyndigheten ge ekonomiskt stöd som främjar den skadades återgång till tidigare livssituation och arbetslivet samt till anskaffande av hjälpmedel som denne behöver. 10 § Stöd enligt 8 och 9 §§ ska ges endast om det inte ska tillhandahållas av någon annan till följd av andra bestämmelser och i den utsträckning som det framstår som skäligt med hänsyn till skadan samt omständigheterna i övrigt. 11 § Vid fullgörandet av de uppgifter som avses i 8 och 9 §§ ska anställningsmyndigheten samarbeta med andra berörda myndigheter och organisationer. 12 § ansvar enligt 8 och 9 §§ innebär ingen inskränkning i det ansvar som den skadades arbetsgivare har enligt 2 kap. och 3 kap. 2 a § arbetsmiljölagen (1977:1160) samt 22 kap. lagen (1962:381) om allmän försäkring. stödåtgärder enligt 8 och 9 §§ ska samordnas med en eventuell annan arbetsgivares åtgärder. Arbetsskada 13 § Vid tjänstgöring utomlands i en internationell civil krishanteringsinsats gäller lagen (1976:380) om arbetsskadeförsäkring från det att den första färden till tjänstgöringsplatsen påbörjas till det att återresan från tjänstgöringsplatsen avslutas. Skada som inträffar ska anses som arbetsskada, om övervägande skäl talar för det. Skador som inträffar under semester eller motsvarande ledighet utom tjänstgöringslandet ska omfattas av lagens skydd endast om det finns särskilda skäl. Vid prövning av om den som tjänstgör i en internationell civil krishanteringsinsats drabbats av en arbetsskada ska bevisreglerna i 7 och 8 §§ lagen (1977:265) om statligt personskadeskydd tillämpas för den tid som avses i första stycket, om det är förmånligare för den 45 Författningsförslag SOU 2009:76 enskilde än en tillämpning av motsvarande regler i lagen om arbetsskadeförsäkring. 14 § Vid tillämpning av lagen (1976:380) om arbetsskadeförsäkring utgör livränteunderlaget minst sju prisbasbelopp. 15 § Bestämmelserna i 8 kap. 3 § andra stycket lagen (1976:380) om arbetsskadeförsäkring gäller inte i ärende enligt denna lag. Stöd till anhöriga 16 § ska sörja för att en anhörig till den som tjänstgör i en internationell civil krishanteringsinsats får det stöd och den rådgivning som är påkallat med anledning av tjänstgöringen. Regeringen eller den myndighet som regeringen bestämmer får meddela ytterligare föreskrifter om omfattning och utformning av stöd och rådgivning enligt första stycket. Ersättning till anhöriga 17 § Om den som tjänstgör i en internationell civil krishanteringsinsats förolyckas eller skadas så att sjukhusvård krävs, ska anställningsmyndigheten efter ansökan av den anhörige ersätta denne för skäligt antal resor till den förolyckade eller skadade samt uppehälle och tidsspillan vid sådan resa efter samma grunder som gäller i fråga om ersättning av allmänna medel till vittnen. I fall som avses i första stycket eller när det i övrigt föreligger särskilda skäl, ska anställningsmyndigheten efter ansökan ge skäligt bidrag till kostnader för psykosocialt stöd till anhöriga som är i behov av det och om det framstår som skäligt med hänsyn till omständigheterna i övrigt. Om en anhörigs medverkan är av särskild betydelse för den skadades rehabilitering, ska anställningsmyndigheten efter ansökan ge den anhörige skälig ersättning för kostnader som en sådan insats orsakar. SOU 2009:76 Författningsförslag Överklagande 18 § Beslut enligt 8, 9, 16 och 17 §§ får överklagas hos allmän förvaltningsdomstol. Prövningstillstånd krävs vid överklagande till kammarrätten. Denna lag träder i kraft den 2. Bestämmelserna ska tillämpas även i fråga om tidigare anställda i civila krishanteringsinsatser som skadats efter utgången av . Bestämmelserna i 16 § ska dock tillämpas från lagens ikraftträdande . Ersättning enligt 17 § andra stycket för kostnader, som uppkommit av annan anledning än i samband med att en närstående förolyckats eller skadats så svårt att sjukhusvård krävts, ska utges endast om kostnaderna uppkommit efter lagens ikraftträdande. Författningsförslag SOU 2009:76 2 Förslag till lag om ändring i (1962:700) Härigenom föreskrivs att 2 kap. 3 och 5 §§ ska ha följande lydelse.