sou · H1B349 · 2013-06-25 00:00:00 — Utredningen föreslår att en nämndeman ska kunna entledigas redan om han eller hon har visat sig olämplig för uppdraget. Kravet på uppenbar olämplighet för att entledigande ska kunna ske ersätts således med krav på olämplighet. Detta innebär att domstolarna får utökade möjligheter att entlediga en nämndeman som visar sig vara olämplig att fortsätta sitt uppdrag. Utredningen föreslår ingen ändring av reglerna om avstängning av nämndemän. Arvodet uppfattas som, och är, en viktig markör för nämnde- mannauppdragets vikt och ställning i samhället. ska ersätt- ningsnivån återspegla det förhållandet att nämndemannauppdraget är ett lekmannauppdrag. Utredningen föreslår med dessa utgångs- punkter en dubblering av dagarvodet. Vad gäller arvodesmodellen innebär vårt förslag att det för tjänstgöring under högst inklusive pauser ska betalas halvdagsersättning () och att hel- dagsersättning () ska utgå för tjänstgöring överstigande . Utredningen föreslår även att det för tjänstgöring efter ska utgå extra ersättning (). Vi föreslår vidare att inläs- ningsarvode ska kunna utgå för förberedelsearbete som överstiger en timme, lika för tings- och förvaltningsrätt. Det föreslås inga änd- ringar vad gäller reglerna om ersättning vid inställd förhandling och ersättning för utebliven arbetsförtjänst. För att uppnå en allsidig sammansättning av nämndemanna- kåren är det viktigt att tjänstgöringsfrekvensen för nämndemännen är jämn och förutsebar. Vi föreslår att det införs en målsättnings- regel som innebär att varje nämndeman ska tjänstgöra och inte . Information och utbildning som riktas till nämndemän En omfattande utbildning av nämndemän är inte förenlig med nämndemännens roll som lekmän. Det är däremot viktigt att nämndemännen är väl införstådda med sin roll i domstolen och har kunskap om frågor som har betydelse för tjänstgöringen. Även om det på det stora flertalet domstolar anordnas introduktion för nya nämndemän är det långt ifrån alla nyvalda nämndemän som deltar i utbildningen. Utredningen föreslår att genomgången introduk- tionsutbildning ska vara en förutsättning för att en ny nämndeman ska kunna påbörja sin tjänstgöring i domstolen. De frågor och ämnen som ska behandlas vid introduktionen kan behöva belysas på nytt . Vi anser därför att även omvalda nämndemän, som har deltagit i introduktion, ska genomgå av domstolen anordnad repetitionsutbildning. Det ska ske från det att den omvalde nämndemannen har tillträtt och ska vara en förutsättning för fortsatt tjänstgöring. Domstolarna har en skyldighet att lämna nämnde- männen löpande information i frågor som har betydelse för deras tjänstgöring. Vi anser att domstolarna i större utsträckning bör föra dialog med nämndemännen inför bl.a. schemaläggning. En bra dia- log skapar bättre arbetsklimat för alla och gagnar i förlängningen förtroendet för domstolarna. Den lagfarne domaren har en viktig roll när det gäller samverkan med nämndemännen. Vi gör bedömningen att det i domarutbild- ningen bör ingå moment som tar sikte på detta och hur man får till stånd en bra överläggning. Vårt övergripande mål har att varit att lämna förslag på åtgärder som gör att vi även har ett nämndemannasystem som kan bidra till att upprätthålla allmänhetens förtroende för dom- stolarna och att vi har en ändamålsenlig medverkan av nämndemän. Ändringarna kommer att beröra de personer som kan komma i fråga för att väljas till nämndemannauppdrag samt domstolar och kommuner och landsting. Förslaget att nämndemän inte längre ska medverka i hovrätt och i kammarrätt kommer att leda till kostnadsminskningar. Även för- slaget att minska antalet nämndemän från tre till två och nämnde- männens medverkan i olika måltyper kommer att medföra minskade kostnader. Förslagen om förbättrade ekonomiska villkor för nämnde- männen innebär en kostnadsökning som dock ryms inom den kostnadsminskning som övriga förslag föranleder. Med nämnda kostnadsminskning kommer resurser att finnas för att finansiera den kostnadsökning som uppstår för kommuner och landsting till följd av det reformerade rekryteringssystemet. Det kommer dess- utom att finnas utrymme för anslag till för infor- mationsinsatser. Vad gäller förslagets konsekvenser på storleken av nämnde- mannakåren kommer våra förslag att medföra en minskning av antalet nämndemän från cirka 8 300 till 5 200. De förändringar vi föreslår vad gäller rekrytering innebär ett visst ingrepp i kommunernas och landstingens rätt att bestämma hur de ska organisera arbetet med nämndemannaval. Det är vår upp- fattning att denna begränsade inskränkning i den kommunala själv- bestämmanderätten är väl motiverad av det övergripande intresset av en allsidig sammansättning av nämndemannakåren och ett tyd- liggörande av att nämndemannauppdraget är opolitiskt. Lagändringarna föreslås träda ikraft . De nya be- stämmelserna om val och rekrytering av nämndemän ska enligt vårt förslag tillämpas första gången för de nämndemän som väljs för tiden . Utredningens förslag innefattar relativt ingripande förändringar i nämndemannasystemet. Vi föreslår att får i upp- drag av regeringen att med ledning i den föreslagna förordningen om förfarandet vid ansökning och nominering till nämndemanna- uppdrag utarbeta formulär för detta ändamål samt genomföra en informationskampanj riktad till allmänhet och valförsamlingar om det nya rekryteringsförfarandet. Our remit was to conduct a review of the lay judge system and to consider measures to create a modern lay judge system that can continue to maintain public confidence in the courts in the future. Within the context of this review, we were tasked more specifically with making the participation of lay judges in court proceedings more effective, reforming the system of recruitment of lay judges, considering the need to change the rules concerning the dismissal and suspension of lay judges, creating modern terms of service and compensation for lay judge assignments, and improving the information and basic training provided to lay judges, as well as the ongoing exchange of information and other contacts between the courts and lay judges. The Inquirys starting points In the Inquirys view, lay judges have an important function in our courts. By monitoring the operations of the courts and having an influence over decisions, lay judges help to maintain public con- fidence in the judicial system and lend court decisions legitimacy. Therefore, the starting point for our inquiry work was that lay judges make a valuable contribution to our courts and that the importance of such an assignment should be made clear. However, we have observed that the participation of lay judges could be made more effective and that this would free up resources that could improve the terms of service for lay judges. We have also identified measures that should be taken to strengthen public confidence in the lay judge system. One of the important points is that the body of lay judges should be more representative of the Swedish popu- lation in terms of age than is currently the case. Another starting point for our proposals is the fact that lay judges are laypersons. From a public confidence perspective, it is also important to make it clear that the assignment is non-political. Effective participation by lay judges in court proceedings In our view, the need for transparency in our courts can be met through the overall control of the courts operations in general; this need is met even if lay judges do not participate in every single court case. Lay judges should contribute to the cases and court in- stances in which they, other than monitoring operations, can be of most use from other perspectives, e.g. by contributing their addi- tional experience and view of the issues being examined in the case. The Inquiry considers that lay judges should not participate in cases of a straightforward nature. is the participation of lay judges normally justified in cases mainly involving complicated legal issues. Lay judge participation should be concentrated on cases involving more extensive investigation or more complex assess- ments of reasonability or evidence. Our proposals would lead to a reduction in lay judge partici- pation in court proceedings. concentrated participation – whereby lay judges take part in cases where they are most useful and are involved in a constructive way in the discussions during the courts deliberations – would in our view create engagement on the part of the lay judges, which would in turn help to increase the im- portance and attractiveness of the assignment. Reduced lay judge participation in simple cases would also result in more efficient processing and can be expected to shorten processing times. On the basis of these starting points, we have submitted the following proposals on lay judge participation. Number of lay judges and lay judges right to vote For cases and matters before district and administrative courts in which lay judges participate, we propose that the court have a quorum of one legally qualified judge, and two lay judges, instead of three. If one of the lay judges is unable to attend once the main hearing has begun, the court is to have a quorum of one legally qualified judge and one lay judge. If the court has a reinforced composition and two of the lay judges are unable to attend, the members of the court should not constitute a quorum if the lay judges are in the minority. We consider that the conditions for a good dialogue in court would improve with such a reduction, and there would then also be an odd number of members, which is an advantage when it comes to voting. We do not propose any changes concerning lay judges individual right to vote; on the contrary, we consider it is an important way to stress the importance of the assignment and ensure that lay judges feel and take responsibility for decisions. Lay judge participation in district court proceedings The Inquiry proposes that for main hearings in criminal cases, a district court should have a quorum of one legally qualified judge if the offences being considered in the case do not carry a heavier penalty than two years imprisonment. The same should apply when a district court rules on a matter referred to in Chapter 38, Section 6 of the Swedish Penal Code (revocation of a sanction, etc.) and to cases concerning the conversion of fines. The Inquiry also proposes removing the requirement that a lay judge always partici- pate in the decision when a court clerk or drafting lawyer qualified to serve in the district court processes criminal cases in the district court. The Inquiry does not propose any changes concerning the partici- pation of lay judges in family cases. We propose removing the requirement that lay judges always participate when the district court rules on matters concerning en- forcement under the Children and Parents Code, non-contact orders, access bans and trading prohibitions. Instead, the same quorum rules should apply as apply to other matters, i.e. should be able to participate if there are special grounds for this considering the nature of the matter. Lay judge participation in administrative court proceedings The Inquiry proposes new quorum rules for administrative courts. In contrast to the regulations currently applicable, we propose that the court should, as a rule, comprise one legally qualified judge. Lay judges should participate in proceedings when an administrative court makes a final ruling on the substance of a case if any of the parties is a natural person and the case involves comprehensive assessments of reasonability or evidence that do not refer to the levying of taxes, fees or duties, or if the case concerns deprivation of or committing a person for care. Lay judges may also participate in other cases if there are grounds for this considering the nature of the case. Apart from the fact that lay judges will no longer participate in tax cases, the proposed quorum rule does not entail any major changes in practice concerning lay judge partici- pation in administrative court proceedings. We also propose that it should be made easier to reinforce the court with additional members by removing the requirement for special grounds. In future, it should suffice that there are grounds for doing so, considering the scale or complexity of the case. It must be possible for administrative courts to reinforce their com- position, including in cases in which lay judges are not partici- pating; this means that administrative courts may in future have a quorum of two legally qualified judges and no lay judge. The option of reinforcing the courts composition in cases with lay judge participation should remain in place. Finally, the Inquiry proposes removing the requirement that a lay judge always participate in the decision when a court clerk or drafting lawyer qualified to serve in the district court processes cases in the administrative court. Lay judge participation in court of appeal and administrative court of appeal proceedings The Inquiry proposes that lay judges should not participate in court of appeal and administrative court of appeal proceedings. The main focus of the legal process lies in the first instance. The role of the court of appeal and the administrative court of appeal is to review decisions made by the lower courts, and they usually base their decisions on the same material as the lower courts. In our view, lay judge participation when the court of appeal and the administrative court of appeal settle cases has limited added value; the need for transparency has already been sufficiently well met through lay judge participation in the lower court proceedings. The possibilities of referring to evidence already presented in the lower courts are also made easier when lay judges do not participate. Public confidence in, and the legitimacy of, participation by lay- persons in the adjudication process depend on the people chosen as lay judges themselves inspiring confidence and being suitable for the assignment. Under the current rules, only persons who are suitable for the assignment in terms of judgment, independence, abidance by the law and other circumstances may be appointed lay judges (Chapter 4, Section 6 of the Code of Judicial Procedure and Section 20 of the Administrative Courts Act (1971:289)). The Inquiry proposes amending the provision so that only persons who are suitable may be appointed lay judges. The proposal entails a clarifi- cation of the requirement that municipalities and county councils conduct a careful examination of each individual candidates suit- ability. Bankruptcy is currently a circumstance that is considered within the context of the suitability assessment. This differs from the eligibility requirements for permanent judges. The Inquiry proposes introducing an eligibility requirement stating that lay judges may not be bankrupt. Recruitment and election of lay judges The Inquiry has considered a number of different methods for appointing lay judges. Common to all of these alternative systems is that they entail centralisation or regionalisation of the recruit- ment procedure. The Inquiry has concluded that lay judges should continue to be appointed through election by municipal and county council assemblies. These locally elected assemblies have a sound democratic base and function in the same throughout the country. Citizens and other permanent residents have an influence on the composition of these elected assemblies; therefore, this is a way of ensuring that lay judges are the publics representatives in the courts. It is currently the political parties represented in the assemblies that nominate lay judges to the municipal and county council assemblies, and the political parties are also responsible in practice for recruiting all lay judges. It is the Inquirys view that the parties take this task very seriously, and that they also put due effort into the nomination process. However, despite various initiatives, such as information campaigns, young people are still underrepresented among lay judges. This is a problem as it risks undermining public confidence in the lay judge system. The investigation carried out by the Inquiry has shown that the parties have done very to change their working methods on this matter and that recruitment still largely occurs within party circles. Less than four per cent of the Swedish electorate are members of a political party. The Inquiry has concluded that the recruitment process needs to be broadened to circles other than the political parties if the body of lay judges is to be rejuvenated. Such a system would also make clear the non- political nature of the lay judge assignment. The Inquiry proposes a reform of the recruitment process. Any- one who is interested in becoming a lay judge should be able to apply for the assignment to the municipality or county council where he or she is registered as a resident. Applications should be made on a form designed for this purpose. It should also be possible for anyone to nominate another person for the assignment. The nominee for the lay judge assignment should confirm the nomi- nation by signing a form designed for this purpose. We consider that merely opening up the applications procedure is not enough to broaden the recruitment base and rejuvenate the body of lay judges. The Inquiry proposes the introduction of a requirement, established in law, that an assembly must elect at least half of the lay judges from those candidates who have not been nominated by a political party that is represented in the assembly (a free quota). The free quota is to be elected through a majority vote. For voting in general, the option of requesting proportional voting should remain. As is currently the case, municipalities and county councils must check the eligibility of candidates and assess the candidates suitability for the lay judge assignment before electing lay judges. This applies to the candidates nominated by political parties and to those applying through the free quota. Municipalities and county councils are free to determine how the lay judge election is to be prepared, but the Inquiry considers it appropriate that this work be carried out by officials. In future, the courts must also check that those elected as lay judges are eligible for the assignment. We propose that the courts should also check whether the newly elected lay judges have a crimi- nal record. To further clarify that the assignment is non-political, the Inquiry proposes that the election of lay judges be carried out on a separate occasion to the general elections. We propose a transitional pro- vision stating that the term of office for the lay judges elected in the next election (autumn ) be limited to one year only. New lay judge elections will thus be held in the autumn of 2015. In future, this will mean that lay judges are elected in the autumn of the year following the general elections. We do not propose any upper age limit to be eligible for elec- tion as a lay judge, nor do we propose any limit to the number of terms a lay judge may serve. One aspect that is important from a public confidence perspective is that only people who are suitable for the assignment should serve as lay judges in our courts. Under the current rules, a lay judge is to be dismissed if he or she has proved to be clearly unsuitable for the assignment (Chapter 4, Section 8, third paragraph of the Swedish Code of Judicial Procedure and Section 21, second paragraph of the Administrative Courts Act (1971:289)). The Inquiry proposes that it should be possible to dismiss a lay judge if he or she has proved to be merely unsuitable for the assignment. The requirement that a lay judge is clearly unsuitable for the assignment will thus be re- placed by the requirement that he or she is unsuitable. This means that the courts are given greater scope to dismiss a lay judge who proves to be unsuitable to continue the assignment. The Inquiry does not propose any changes to the rules on suspen- ding lay judges. Terms of service and compensation Remuneration is perceived to be, and is, an important marker for the importance and status in society of the lay judge assignment. At the same time, the level of compensation should reflect the fact that the lay judge assignment is a lay assignment. In light of this, the Inquiry proposes that the daily remuneration be doubled. Our proposal means that the remuneration model would provide pay- ment for half a day () for service for a maximum of four hours including breaks, and payment for a whole day (000) for service in excess of four hours. The Inquiry also proposes that extra compensation () should be paid for service after 16.30. In addition, the Inquiry proposes that background reading remuneration should be paid for preparatory work in excess of one hour, the same level for district and administrative courts. There are no proposed changes to the rules on compensation for a can- celled hearing and compensation for loss of income from work. In order to achieve a more balanced composition of the body of lay judges, it is important that the frequency with which lay judges are required to serve is steady and predictable. We propose intro- ducing a target rule, whereby every lay judge should serve a mini- mum of eight days and no more than twenty-five days in one year. Information and training for lay judges Comprehensive training for lay judges is not reconcilable with their role as laypersons. However, it is important that lay judges have a good understanding of what their role in the court entails and have knowledge of the issues that are important for their assignment. While the large majority of courts organise induction courses for new lay judges, far from all newly elected lay judges take part in The Inquiry proposes that attendance of an induction course be a prerequisite for a new lay judge being permitted to start serving in court. It may be necessary to revisit the issues and subjects covered in the induction course after a period of time. We therefore consider that re-elected lay judges who have previously taken part in an induction course should attend a repeat course organised by the court. This should be done within six months of the re-elected lay judge beginning service and should be a pre- requisite for continued service. It is already the case that the courts have an obligation to con- tinuously provide lay judges with information on issues that are important for their assignment. We consider that the courts should become better at holding a dialogue with the lay judges concerning scheduling, for example. A good dialogue creates a better working atmosphere for all involved and ultimately benefits public confi- dence in the courts. The qualified judge has an important role as regards cooperation with lay judges. We consider that judicial training programmes should include elements that focus on this and on how to achieve good deliberations. Consequences of the proposals Our overarching objective was to submit proposals for measures that ensure that we will continue to have a lay judge system that can help to maintain public confidence in the courts, and that we have the appropriate level of participation by lay judges. The changes will affect the people who may be elected lay judges, as well as the courts, municipalities and county councils. The proposal that lay judges no longer participate in court of appeal and administrative court of appeal proceedings will result in reduced costs. The proposal to reduce the number of lay judges from three to two and to limit lay judge participation in various types of cases will also mean a reduction in costs. The proposals concerning improved financial terms for lay judges will mean a rise in costs, but this will be covered by the reduction in costs brought about by the other proposals.