sou · H1B342 · 2013-06-12 00:00:00 — För det fall det uppkommer sådana ärenden där tillsynsinsatser aktualiseras från både JK eller JO och för polisen bör ansvaret för sådana ärenden kunna lösas genom löpande kontakter mellan organen. ska ha en annan inriktning på sin verksamhet än den granskning utövar. En viss mindre överlappning mellan verksamheterna kan uppstå genom att ett särskilt område inom polisen kan bli föremål för granskning – dock med olika inriktning – av både och tillsynsmyndigheten. En sådan överlappning bör dock kunna hanteras genom samordning mellan myndigheterna. Det är för tidigt att utvärdera om den nuvarande överlappande tillsynen över polisens personuppgiftsbehandling – som både och Datainspektionen har att utföra – bör utföras i annan ordning än . Samverkan är väsentlig för att tydliggöra och skapa förutsättningar för att kunna ange vilka olika syften, frågeställningar, arbetsuppgifter och ansvar de olika tillsynsorganen har när det gäller granskning av polisens verksamhet. Det bör därför slås fast att tillsynsmyndigheten ska samverka och samarbeta med övriga tillsynsmyndigheter som utför tillsyn eller granskning på polisens område. Sekretess och tillsynsmyndighetens tillgång till information Genom att tillämpa befintlig reglering i offentlighets- och sekretesslagen (2009:400) uppnås ett fullgott sekretesskydd för uppgifter i tillsynsmyndighetens verksamhet. Något behov att hos tillsynsmyndigheten sekretesskydda uppgifter som inte omfattas av sekretess i den verksamhet som granskas torde inte finnas. En sekretessbrytande bestämmelse med en uttrycklig uppgiftsskyldighet för och Säkerhetspolisen till för polisen införs. Dessa myndigheter ska på begäran av tillsynsmyndigheten lämna upplysningar samt tillhandahålla handlingar och annat material. Även andra myndigheter som kan lämna upplysningar eller innehar handlingar och annat material som avser den granskade verksamheten ska vara skyldiga att på tillsynsmyndighetens begäran lämna upplysningar, handlingar och annat material. Reglering av tillsynsmyndighetens verksamhet Kommittén lämnar förslag om en ny lag; lagen (xxxx:xx) om tillsyn över polisverksamhet och viss annan brottsbekämpande verksamhet. I lagen regleras bl.a. förutsättningarna för den nya tillsynen över polisen. Vidare lämnar kommittén bl.a. ett förslag till en instruktion för tillsynsmyndighetens verksamhet. Kompetens, volym, kostnader och finansiering har behov av kvalificerad personal med bakgrund i och erfarenheter från polisverksamheten, men också av personal med goda tillsynskunskaper samt kompetens inom exempelvis juridik, statistik och statskunskap. Myndigheten har vidare behov av att behålla den kompetens som finns hos . ningen att verksamheten vid tillsynsmyndigheten bör byggas upp successivt. En utgångspunkt kan vara att myndigheten ska ha minst cirka trettio årsarbetskrafter, inklusive den personal som hör till . Verksamhetsmässigt finns det skäl för att i förlängningen bygga upp en större organisation. för polisen ska finansieras med skattemedel. Konsekvenser av kommitténs förslag Den tillsyn av regelefterlevnad som för polisen ska utöva gör att regeringen, och i förlängningen medborgarna, får bättre kontroll över att regler och lagar följs i polisverksamheten. granskning kan också bidra till en större enhetlighet i rättstillämpningen i polisens breda och geografiskt spridda verksamhet. De granskningar som tillsynsmyndigheten föreslås utföra ska ge återkoppling till politiker och lagstiftare om hur regelverken för polisen fungerar och om de i praktiken tillämpas som avsetts. Granskningarna ska vidare tjäna som underlag för regionpolisråden samt för respektive Säkerhetspolisens insynsråd. Genom det särskilda beslutsorganet Säkerhets- och integritetsskyddsnämndens föreslagna nya uppgifter skapas ett demokratiskt inflytande över tillsynsmyndighetens verksamhet. behöver analysera vilka nya möjligheter tillsynsmyndighetens verksamhet ger för ledning, styrning och uppföljning av polisverksamheten. Det handlar bl.a. om hur ska ta hand om resultatet av de granskningar som tillsynsmyndigheten presenterar. bör starta verksamheten . En organisationskommitté ska inrättas skyndsamt för att vidta nödvändiga åtgärder för att förbereda inrättandet av myndigheten. This part of the remit given to requires it to investigate the need for an independent body to scrutinise the activities of the , including the activities of the (supplementary terms of reference 2012:13). If the Committee finds convincing reasons to establish such a body, it is to deliver a complete proposal for its organisation and activities. The remit should be seen in the context of the proposals the Committee presented in its report SOU 2012:13, which called for the reorganisation of and the 21 authorities into a single unified authority and the reorganisation of the into a separate authority, independent of the rest of the service (see also SOU 2012:77 and SOU 2012:78). The Governments definition of supervision The supplementary terms of reference state that when examining whether an independent body should be established with the task of conducting expert scrutiny of activities, the Committee can draw on the Government communication Clear, fair and effective supervision (2009/10:79; the communication on supervision) for guidance. This also applies when the Committee considers how such a body and its activities, if established, should be organised. The assessment made in the communication on supervision is that the term supervision should primarily be used to refer to activities aimed at independent scrutiny to check that the object of supervision meets requirements that follow from laws and other binding regulations and that, when necessary, can lead to decisions on measures designed to ensure that the person or persons responsible for the object of supervision correct shortcomings. However, in the Governments opinion, there is reason, in certain areas, to depart from assessments of how the term supervision should be defined and used. Such departures can be made if they lead to more effective supervision in that specific area. Supervision is a concept with many meanings a long period, supervision has developed in different ways in the areas in which it is exercised. Presumably this is due to the varying legislation, approaches, practices and attitudes that have grown up in each area of activity. The tasks, function, organisation and mandate of different supervisory bodies also differ. In each case, supervision has been designed based on the need for scrutiny perceived by the Riksdag and the Government in a given area. In its report, the Committee describes how diverse the concept of supervision is (Chapter 3). Current scrutiny of activities In its report, the Committee describes the current state scrutiny of activities and gives a special account of the supervision of the currently exercised (Chapter 6). The Parliamentary Ombudsmen (JO) and the Office of the Chancellor of (JK) exercise extraordinary supervision of the . Audit Office is an important component of the Riksdags parliamentary control which, in recent years, has conducted efficiency audits of the judicial system in a number of areas. exercises supervision of the way personal data is processed by the . By means of inspections and other forms of examination, the Swedish Commission on Security and Integrity Protection exercises supervision of law enforcement agencies use of secret coercive measures and qualified assumed identities and of activities associated to such use, and of the way personal data is processed by the . The Swedish Work Environment Authority is tasked with exercising supervision of the regarding work environment and working hours. is currently the central administrative authority of the services and, under Section 7 of the Act (1984:387), has supervisory powers over them. The scope of supervision by is specified in Section 2 a of the Ordinance with instructions for (1989:773). In the above-mentioned provision, the Government assigns the Board duties that extend beyond the term supervision as defined in the communication on supervision. For the , the term supervision has come to include inspection, follow-up (financial follow-up and operational follow-up), evaluation and internal auditing. In addition, the local boards and the county authorities also have supervisory duties. for supervision of activities The assessment of the Committee is that there is a need to exercise supervision of the . For the to be able to do its job efficiently, it must have the confidence of the people. This is important not least so that the can fulfil its task of creating a sense of security. Supervision of services strengthens the publics confidence that activities are conducted in a correct . It is important that, in addition to the extraordinary supervision of the exercised by the Parliamentary Ombudsmen and the Office of the Chancellor of , it is also possible to exercise more regular and ongoing scrutiny of services. The distinctive nature of activities justifies exercising thorough supervision of services. These activities include far-reaching powers to intervene in peoples lives and it is therefore important that measures taken by the can later be examined. The lack of a right to review certain decisions can, to a certain extent, be offset by the opportunity for ex post control and scrutiny of activities. Furthermore, exercising supervision of services provides an additional opportunity for the Riksdag and the Government to check that activities are conducted in a correct . An independent authority to exercise supervision of the new organisation The Committees proposal on a new organisation will no longer be the central administrative body for the (SOU 2012:13). It also means that – in addition to the supervision conducted by the extraordinary supervision bodies and , the Swedish Commission on Security and Integrity Protection and the Swedish Work Environment Authority – regular supervision of activities of a more independent nature will no longer be conducted. There are alternative ways of guaranteeing that compliance with regulations for activities can continue to be scrutinised in a that at least corresponds to the way currently inspects activities. One alternative is to allow the new authorities the Swedish Authority and the to conduct their own supervision of their individual activities. Another alternative is that an independent body exercises regular supervision of activities. The assessment of the Committee is that supervision of the new organisation is best exercised by an authority that is independent of the . In the communication on supervision, the Government states that the term supervision should primarily be used to refer to activities aimed at independent scrutiny. In general, the further away a supervisory body is in organisational terms from the object under supervision, the greater the publics confidence in the supervision. Organisational separation between the handling of supervisory issues and regular activities creates the basis for credible activities and credible supervisory activities. Accordingly, the Committee proposes that the scrutiny body be an authority independent of the . Scrutiny of compliance with regulations Supervision that checks that action is supported by law or other binding regulations will cover those areas of activities that are most important to scrutinise. In its report, the Committee takes stock – based on the provisions in Sections 2 and 2 a of the Act – of the areas of activities in which supervision can be exercised. There is great scope to exercise supervision of activities such as those that will be conducted by the new Swedish Authority and . The supervisory authority should primarily scrutinise compliance with regulations in activities and matters that can be presumed to reflect general conditions, which means that supervision normally should not result in statements concerning individual cases. At present, there is no reason to depart from the Governments definition of supervision – scrutiny of compliance with regulations – and bring up other supervisory duties related to activities. The task, responsibilities and powers of the supervisory authority The supervisory authority should regularly analyse the areas of activities that, based on the duties of the specified in Sections 2 and 2 a of the Act, should be scrutinised from the perspective of regulatory compliance. proposes that the supervisory authority itself plan and initiate scrutiny of activities. The supervisory authority will be required to draw up a supervision plan for its activities. As regards activities, it may be of particular interest to use risk assessments as the basis for planning supervision. The supervisory authoritys duties are to be based on ex post checks of activities. Decisions by the Swedish Authority and the are not to be scrutinised if the decisions can be examined in substance by a court of law. Supervision is to refer to the new authorities the Swedish Authority and the , and not individual officials. There are insufficient grounds for placing special investigations within the Swedish Authority under supervision by the supervisory authority. The question of whether the supervisory authority is to scrutinise activities at the National Laboratory of Forensic Science will be deferred until the Government Offices has completed its preparation of the issue concerning the Laboratorys role in the future organisation. The supervisory authority is not to have the right to issue regulations. is it to have the power to impose sanctions for any errors that are discovered when conducting supervision of regulatory compliance in activities. On the other hand, the supervisory authority is to have the opportunity to direct criticism towards the scrutinised activity by issuing statements. The scrutinised authority is to be informed of the results of the supervisory authoritys scrutiny and be provided with its statements. Combine supervisory duties in the area So as not to further increase the number of examining authorities in the central government sector which, in its work, the Committee has considered to be surprisingly many, it is proposed that the new duties of supervising the be placed in the same authority structure as the activity currently carried out by the existing supervisory body, the Swedish Commission on Security and Integrity Protection. Even if the proposed supervision of the services will focus clearly on scrutiny of day-to-day activities, it may be possible to bring the current duties of the Swedish Commission on Security and Integrity Protection into the ambit of one and the same authority. If the new duties of supervising the and the Commissions current duties are placed in the same organisation, a form of board-based decision-making procedure should continue to be used for at least some of the Commissions supervisory business. The supervisory authority will be governed by a head of authority directly answerable to the Government, and will include special decision-making bodies. The actual commission within the Swedish Commission on Security and Integrity Protection will continue to exist as a special decision-making body within the supervisory authority. The Commissions duties will, in addition, be extended to include certain duties relating to the regular supervision of the organisation for which the new supervisory authority will be responsible. Checks Delegation and the Registration Delegation will be special decision-making bodies within the new supervisory authority, just as they are now special decision-making bodies under the Commission. proposes that apart from matters relating to the special decision-making bodies, the supervisory authority itself will be empowered to decide on its internal organisation. The authority will be called the Supervisory Authority and will be based in the area. Consequences for the prosecution authorities The Committees terms of reference include instructions to analyse the consequences for the prosecution authorities of establishing an independent body for scrutinising the . In a broader perspective, this is a matter of establishing the place of the supervisory authoritys duties with respect to the legal community. The new supervision of the will introduce a new actor that may operate vis-à-vis the arena of the judicial chain: an authority that is independent of the and whose role is to exercise ex post scrutiny of activities, but not to express any opinion on the conduct of prosecution activities. The activities of the Supervisory Authority will have consequences for the prosecution authorities. It cannot be ruled out that increased independent scrutiny of criminal investigations conducted by the may to some extent mean that the supervisory authority will expose the independent role of prosecutors in investigating crime. However, the consequences are not of a nature that should preclude establishing a body for scrutinising the extensive activities of the or that would necessitate exempting criminal investigations from the scope of the proposed supervisory authoritys scrutiny. Regulations should be put in place directing that the authority is to cooperate with the prosecution authorities in supervisory matters. The new supervision of criminal investigations conducted by the must be clearly defined, with reference to the limits of the legal supervision exercised by the prosecution authorities. Demarcation lines with respect to other authorities In its report, the Committee analyses the demarcation issues that may arise between the supervisory authority and the other scrutiny bodies that supervise the . risk is seen that problems of demarcation might arise between the Office of the Chancellor of or Parliamentary Ombudsmen and an independent supervisory authority for the . In the event of matters that might call for supervisory action by either the Office of the Chancellor of or the Parliamentary Ombudsmen, and the Supervisory Authority, it should be possible to resolve the issue of responsibility by means of regular contacts between the different bodies. The focus of the supervisory authority will differ from that of the scrutiny exercised by the Audit Office. Some minor overlap between the activities may arise if a particular area of the services becomes the object of scrutiny – though focusing on different aspects – of both the Audit Office and the supervisory authority. However, coordination between the two authorities should be able to deal with any such overlap. It is too early to assess whether the current overlapping supervision of personal data processing by the – which is conducted by both the Swedish Commission on Security and Integrity Protection and – should in future be conducted differently than today. Collaboration is essential to clarify and make it possible to specify the various purposes, questions, duties and responsibilities of the different supervisory bodies in scrutinising activities. It should therefore be clearly laid down that the supervisory authority is to cooperate and collaborate with other supervisory authorities that conduct supervision or scrutiny in the area. Secrecy and the access of the supervisory authority to information Fully adequate secrecy protection for data can be achieved in the activities of the supervisory authority by applying existing regulations in the Public Access to Information and Secrecy Act (2009:400). Protecting the secrecy of information not covered by secrecy regulations in the activities being scrutinised is unlikely to be necessary. A secrecy-override provision will be introduced, explicitly requiring the Swedish Authority and the to make information available to the Supervisory Authority. At the request of the supervisory authority, these authorities must provide information and make documents and other material available. Other authorities that are in a position to provide information or in possession of documents and other material relating to the activities being scrutinised will also be obliged to make information, documents and other material available at the request of the supervisory authority. Regulation of the activities of the supervisory authority proposes a new act – the act on supervision of activities and certain other law enforcement activities (xxxx:xx). The act will contain regulations on the conditions governing the new supervision of the . In addition, the Committee delivers a proposal on instructions for the activities of the supervisory authority. Skills base, size, costs and funding The supervisory authority needs well-qualified staff with a background in and experience of activities, but also staff with good knowledge of supervision and skills in law, statistics, political science and other areas. The authority also needs to keep the skills base now possessed by the Swedish Commission on Security and Integrity Protection. The assessment of the Committee is that activities at the supervisory authority should be built up gradually. As a rough guide, after two years it should have at least thirty fullyear equivalent positions, including the staff currently employed by the Swedish Commission on Security and Integrity Protection. In operational terms, there are grounds for up a larger organisation over time. The Supervisory Authority will be financed by tax revenues. Consequences of the Committees proposals The supervision of compliance with regulations that the Supervisory Authority is to exercise will put the Government, and ultimately citizens, in a better position to check that activities comply with regulations and laws. The scrutiny exercised by the authority can also contribute to greater consistency in the application of the law throughout the services broad and geographically diffuse activities. The proposed scrutiny will provide feedback to politicians and legislators on how the regulations affecting the are working and whether they are being applied in practice as intended. Furthermore, it will provide data for the regional councils and the Swedish Authority and advisory councils. The proposed new duties of the special decision-making body the Swedish Commission on Security and Integrity Protection will create democratic influence over the supervisory authoritys activities. The Government Offices need to analyse the new opportunities for management, governance and follow-up of activities offered by the supervisory authority. For example, the question arises of how the Government Offices should treat the results of scrutiny presented by the authority. The supervisory authority should begin its activities on 1 January 2015. An organising committee will be set up promptly to take necessary measures to prepare the of the authority. lag (xxxx:xx) om tillsyn över polisverksamhet och viss annan brottsbekämpande verksamhet 1 § Med tillsyn över polisverksamhet och viss annan brottsbekämpande verksamhet avses granskning som har till syfte att kontrollera om ett tillsynsobjekt uppfyller de krav som följer av lagar och andra föreskrifter. Tillsynens omfattning och inriktning 2 § för polisen (tillsynsmyndigheten) har tillsyn över 1.Polismyndighetens och Säkerhetspolisens verksamhet enligt 2 § och 2 a § polislagen (1984:387), 2.brottsbekämpande myndigheters användning av hemliga tvångsmedel och kvalificerade skyddsidentiteter och därmed sammanhängande verksamhet, 3.Polismyndighetens och Säkerhetspolisens behandling av personuppgifter enligt polisdatalagen (2010:361), och när det gäller Säkerhetspolisen även enligt polisdatalagen (1998:622) samt lagen (2010:362) om polisens allmänna spaningsregister. Denna tillsyn ska särskilt avse sådan personuppgiftsbehandling som avses i 2 kap. 10 § polisdatalagen (2010:361) och 5 § polisdatalagen (1998:622) samt 12 § lagen om polisens allmänna spaningsregister.