sou · H3B357 · 2015-06-11 00:00:00 — It should be possible to carry out supervision concerning the actions of an individual official. However, any criticism would not be directed at individual officials, but at the authorities – the Swedish Authority, the and the Swedish Prison and . Individual officials act on behalf of the authority. The performance of the individual is strongly dependent on which position he or she has held, the workload, education, division of responsibility, routines and other circumstances that are governed by the authority leadership. The authority leadership is responsible for internal governance and controls and has the best possibilities to take measures to ensure that mistakes are not repeated. In addition, there are already processes in place for individual accountability. Individuals can be held accountable by the authority’s staff disciplinary board and even prosecuted for an offence. Supervision is not to cover activities conducted by bodies subject to private law linked to the scrutinised authorities, such as a home engaged by the Swedish Prison and . However, measures and omissions by employees at bodies subject to private law, volunteers, etc. may fall within the supervisory responsibility. This is on the condition that they acted under the leadership of the authority and under conditions that are largely similar to those that would have applied to the authority’s own employees. For instance, measures that have been carried out by a security guard appointed by the scrutinised authority for a security task should be included in the supervision. Initiation, planning, methods and administration It is not possible to predict with any certainty what will be most important to scrutinise in future. The most effective supervision is therefore achieved if the supervisory authority, within the framework of the regulated mandate, is permitted to largely prioritise on its own which supervisory matters should be initiated. Instructions for the supervisory authority should specify that supervision is to be carried out strategically and that the authority is to utilise risk analyses. The purpose of this regulation is to counteract planned supervision being pushed aside by events-based supervision. The activities should be well-planned, forward-looking and methodical. The supervisory authority is to specify the main focus of supervision in a special supervisory plan. Although the supervisory authority should be free to develop an effective supervisory methodology by itself, inspections are to constitute part of the supervisory authority’s activities. Monitoring of transports abroad that may include coercive measures are also to constitute part of the supervisory authority’s activities. State shall, under the Return Directive, provide for an effective forced-return monitoring system.1 The Swedish Authority, the , and the Swedish Prison and participate in various ways in transports abroad that is carried out using coercive measures. Such transports are especially sensitive and often involve the risk of different types of incidents. The supervisory authority should therefore regularly monitor transports abroad that may involve coercive measures. It should be left up to the authority to, based on a risk analysis, continually assess the frequency with which supervision should be carried out, and which types of transport abroad should be prioritised. The supervisory authority is also to receive and investigate complaints from individuals. The authority itself may determine which complaints to investigate. Since the supervisory authority should pursue systematic and risk-based supervision, complaints from individuals should not only be used to collect information about individual incidents which may be relevant for investigation. Complaints should also be included in the collective documentation on which the authority’s supervisory planning is based. In handling complaints, the supervisory authority should pay particular attention to the needs of children deprived of their . 1 Art. 8.6 in Directive 2008/115/EC of Parliament and of the Council of on common standards and procedures in Member States for returning illegally staying third-country nationals. Means for correcting or preventing shortcomings Supervisory matters are to be settled by written decisions. In these, the supervisory authority may have the opportunity to comment on the established circumstances’ conformity with laws and other binding regulations. The decisions are not to be binding. If the supervisory authority had the right to enforce changes, it would affect the scrutinised authorities’ possibilities to take responsibility for their own activity. In a longer perspective, a right to impose binding sanctions may jeopardise the scrutinised authorities’ willingness to cooperate in the investigation. On the other hand, the regulations on which the statements will be based are binding. If activities are not compatible with the binding regulations in some respect, the scrutinised authority is obliged to take measures against the background of these regulations. If necessary, the Government may exercise its option for governance and control to bring about changes in the scrutinised activities. Since the decisions are not to be binding, neither do they need to be appealable. This will avoid the State’s resources being used for the purpose of two government agencies litigating against each other in a court of law. Decisions in supervisory matters are to be sent or submitted to the scrutinised authority. A report with key findings and supervision conclusions is also to be submitted annually to the Government. The supervisory authority may also, where necessary, inform the Government in another way with regard to individual decisions. for the Management of Operational Cooperation at the External Borders of the Member States of Union (Frontex) assists Member States with the organisation of joint return operations for removals of third-country nationals residing illegally in Union. After monitoring a joint return operation coordinated by Frontex, the supervisory authority should report to Frontex. The outcome of the supervision should also be disseminated to other supervisory bodies and to the general public. The supervisory authority should, taking into account the applicable legislation, for itself assess in which way and to what extent reporting or other information dissemination would be appropriate. The task of the supervisory authority includes providing the scrutinised authorities with certain counselling and guidance. The authority should not, however, give concrete advice on what should be done to resolve the established shortcomings. It is the scrutinised authority, with responsibility for the activities, that can best determine which measures are needed. The supervisory authority is to have the right to demand that the scrutinised authority, within a certain period, report which measures have been taken or will be taken. The supervisory authority should also have other ways of working for a change in the activities under supervision. As mentioned above, it may alert other supervisory bodies of shortcomings and risks and report them to a prosecutor if there is reason to assume that a crime has been committed. The authority may also inform individuals of the possibility to contact the Office of the Chancellor of and request compensation by the State. To further enable the authority to promote quality within the scrutinised authority, it should be tasked with, within its area of activity, working to remedy shortcomings in legislation or other binding regulations. The right to assist another State with monitoring According to Commission, an independent monitor should be present at each joint return operation, since these are sensitive and attract much attention. In cases where organises a joint transport, the other participating States’ treatment of those being transported is closely linked to the activities of the Swedish Prison and and the . In cases where is the organising , the supervisory authority should, therefore, be permitted to assist the other State in monitoring joint return operations coordinated by Frontex. Such monitoring may only take place following agreement. Information gathering, personal data processing and secrecy A fundamental prerequisite for exercising supervision is that the supervisory authority is given access to the information it needs. The administrative authorities under supervision are to submit the information and statements and make available documents and other material requested by the supervisory authority. The same is to apply to other administrative authorities and courts of law, if what the request refers to is necessary for supervision. Certain individuals who participate or have participated in the activities of an administrative authority or court of law are also to be obliged to, on request, submit information and statements necessary for supervision. At the request of the supervisory authority, the information is to be submitted in writing and with a declaration that the information provided is correct. If incorrect information is submitted, penal liability may be relevant under Chapter 15, Section 10 of the Penal Code with regard to untrue or negligent affirmation. The possibility to request that submitted information be solemnly declared to be truthful should be used with restraint. The supervisory authority is to be able to demand that those who have a duty to report fulfil their obligation. Such demands should be possible to combine with penalties, even in relation to the State. The possibility to combine a demand to fulfil their duty to report with a penalty should, however, be used with restraint. If information is extracted under threat of penalty, in the long term this can undermine the scrutinised authority’s confidence in and willingness to cooperate with the supervisory authority. The individual’s right to remain silent also means not combining a demand with a penalty if there is reason to assume that the individual to be ordered to report information has committed an act that can result in punish or a similar sanction and the demand refers to the investigation of a question in connection to the suspected act. Authorities under supervision are to submit to the supervisory authority the assistance it requests for its supervision. The supervisory authority is also to have the right to scrutinise in situ activities which are under its supervision. It is to have the right to gain access and investigate spaces and equipment used in the scrutinised activities. However, for access to or investigation of an inmate’s rooms or belongings or other closed places of storage which the inmate has at his/her disposal, his or her consent is required. No special regulation is necessary with regard to the supervisory authority’s personal data processing, since the provisions of the Act (1998:204) are sufficient. is any special secrecy regulation necessary with regard to data that the supervisory authority receives from other Swedish authorities. Nonetheless, a new secrecy regulation is proposed to achieve fully adequate secrecy protection when data is submitted by individuals, a foreign authority or an international organisation. Cooperation and demarcation lines with respect to other authorities In relation to other supervisory authorities that exercise regular supervision of the Swedish Prison and and the , there may be a matter of overlapping supervisory responsibility. Yet the problem of overlap is greatly reduced by the proposal that supervision should not normally be carried out in conditions where another supervisory authority has a special task to exercise supervision. An authority for regular supervision of the ’s and the Swedish Prison and ’s activities does not entail any demarcation problem with regard to the extraordinary supervisory bodies of the Parliamentary Ombudsmen (JO) and the Office of the Chancellor of (JK). The supervisory authority is to cooperate with other authorities and international bodies that may exercise supervision of activities conducted by the or the Swedish Prison and . Cooperation with the Parliamentary Ombudsmen and the Office of the Chancellor of should, however, only aim to avoid duplication and not refer to joint supervisory operations, since the Parliamentary Ombudsmen and the Office of the Chancellor of exercise supervision of the supervisory authority. There is a close connection between the and the prosecutor’s criminal investigations. authorities carry out legal supervision. Therefore, the supervisory authority is also to cooperate with the Swedish Prosecution Authority and the Swedish Economic Crime Authority. The supervisory authority will be a Director-General governed authority directly answerable to the Government. The authorities subject to supervision have tasks involving far-reaching exercise of powers to take measures that affect individuals. For this reason, it is important to ensure good transparency for citizens and democratic influence in the supervisory operations. This may be provided by an advisory council at the supervisory authority, which in a broad sense represents the general public. The members should therefore have experience of party policies or have broad points of contact in society. The experience, knowledge and opinions of the advisory council should be particularly utilised before the supervisory plan is confirmed. The supervisory authority should determine its own internal organisation. In order to run an effective supervisory operation, it should, after two years, have resources corresponding to sixty full- year equivalent positions. The authority will be called the Supervisory Authority for the and the Swedish Prison and . Consequences of the Committee’s proposals Exercising this new supervision may require resources from the administrative authorities under supervision, for instance in connection with inspections. At the same time, supervision helps their development work and raises the quality of their activities. For the supervisory authority to comment on the ’s criminal investigations, the authority must have the possibility to describe the circumstances in which the acted. A decision by the supervisory authority may therefore indirectly conclude that shortcomings have occurred in the case of an individual prosecutor’s handling or that there are systematic shortcomings in the prosecution authorities. However, according to the Committee, this does not constitute a threat to the prosecutor’s independence, nor does it constitute grounds to exempt the ’s criminal investigations from supervision. Not permitting the supervisory authority to comment on the substance of an individual decision by the Swedish Authority or the , if the decision is or has been the subject of examination by a prosecutor, also prevents the supervisory authority from indirectly commenting on the application of the law by an individual prosecutor. proposes that the new supervisory authority be financed through a redistribution of resources within expenditure area 4, the judicial system. Such a redistribution will affect the authorities whose budgets are reduced. Supervision should lead to stronger legal security in the ’s and the Swedish Prison and ’s activities. It benefits primarily individuals who are the subject of the examined activity, i.e. are suspects, deprived of their , etc. Stronger legal security may also lead to higher confidence in the and the Swedish Prison and among the general public. Supervision should also lead to the Government, and by extension, the citizens, gaining better control over ensuring that the regulations and laws are respected in the activities of the and the Swedish Prison and . This strengthens democratic insight and control. lag om tillsyn över , Säkerhetspolisen och Kriminalvården Härigenom föreskrivs följande. 1 § Denna lag innehåller bestämmelser om den tillsyn som Tillsyns- myndigheten för polisen och Kriminalvården (tillsynsmyndigheten) ska utöva. 2 § Med tillsyn avses i denna lag kontroll av om den verksamhet som granskas uppfyller de krav som följer av lagar och andra bindande föreskrifter. Tillsynens omfattning och inriktning 3 § ska utöva tillsyn över verksamhet som bedrivs av , Säkerhetspolisen eller Kriminalvården. 4 § Tillsynen ska riktas in på förhållanden som är särskilt ingripande eller på annat sätt har stor betydelse för enskilda. ska normalt inte granska förhållanden som annan myndighet har till särskild uppgift att utöva tillsyn över. Tillträde till lokaler och andra utrymmen 5 § har rätt att på plats granska sådan verksamhet som står under dess tillsyn. Den har rätt att få tillträde till och att undersöka byggnader, lokaler, fordon, andra utrymmen och utrustning som används i verksamheten. För tillträde till eller undersökning av en intagens bostadsrum eller tillhörigheter eller andra slutna förvaringsställen som en intagen disponerar krävs dock hans eller hennes medgivande. 6 § De förvaltningsmyndigheter som omfattas av tillsynen ska lämna de upplysningar och yttranden samt tillhandahålla de handlingar och annat material som tillsynsmyndigheten begär. Detsamma gäller andra förvaltningsmyndigheter och domstolar, om det begäran avser behövs för tillsynen. Skyldighet att på begäran lämna tillsynsmyndigheten de upplys- ningar och yttranden som behövs för tillsynen gäller också för den som för det allmännas räkning deltar eller har deltagit i en förvalt- ningsmyndighets eller domstols verksamhet 1.på grund av anställning eller uppdrag hos myndigheten, 2.på grund av tjänsteplikt, eller 3.på annan liknande grund. 7 § Uppgifterna ska lämnas skriftligen samt på heder och samvete om tillsynsmyndigheten så begär. 8 § får förelägga den som är uppgiftsskyldig att fullgöra sin skyldighet. Föreläggandet får förenas med vite. Detta gäller även ett före- läggande riktat mot staten. Det får dock inte förenas med vite om a)det finns anledning att anta att den som ska föreläggas har begått en gärning som kan föranleda straff eller en straffliknande sanktion, och b)föreläggandet avser utredning av en fråga som har samband med den misstänkta gärningen. 9 § De förvaltningsmyndigheter som omfattas av tillsynen ska lämna tillsynsmyndigheten det biträde den begär för sin tillsyn. 10 § Beslut om vitesföreläggande enligt 8 § andra stycket får över- klagas till allmän förvaltningsdomstol. Andra beslut enligt denna lag får inte överklagas. Prövningstillstånd krävs vid överklagande till kammarrätten. Denna lag träder i kraft . lag om ändring i lagen (1998:620) om belastningsregister Härigenom föreskrivs att 6 § lagen (1998:620) om belastnings- register ska ha följande lydelse. Nuvarande lydelse Föreslagen lydelse Personuppgifter ur belastningsregistret ska lämnas ut om det Justitiekanslern, eller Datainspek- tionen för deras tillsynsverk- för polisen och Kriminalvården för 2.Säkerhetspolisen, , , , åklagarmyndighet eller allmän domstol för verksamhet som avses i 2 § första stycket 1–3, 3.förvaltningsdomstol för prövning enligt 2 § första stycket 4 4.myndighet i övrigt i den utsträckning regeringen för vissa slag av ärenden föreskriver det eller för ett särskilt fall ger tillstånd till det. Regeringen får föreskriva att en myndighet som avses i första stycket får ha direktåtkomst till registret. Uppgifter som har förts in i registret med stöd av 4 a § och som avser en gärning som inte motsvarar brott enligt svensk lag eller en gärning som någon har begått innan han eller hon har fyllt , får dock endast lämnas ut till dem som anges i första stycket 1 och endast om uppgifterna behövs för tillsynen över person- uppgiftsbehandling enligt denna lag. Denna lag träder i kraft . lag om ändring i offentlighets- och sekretesslagen (2009:400) Härigenom föreskrivs att det i offentlighets- och sekretesslagen (2009:400) ska införas en ny paragraf, 32 kap. 2 a §, och närmast före 32 kap. 2 a § en ny rubrik av följande lydelse. för polisen och Kriminalvården Om för polisen och Kriminalvården i sin tillsynsverksamhet får en uppgift från en enskild, en utländsk myndighet eller en mellanfolklig organisation och skulle en sekretessbestämmelse till skydd för enskilds personliga eller ekonomiska förhållanden ha varit tillämplig på uppgiften hos den myndighet som ärendet får anses avse, blir den sekretessbestäm- melsen tillämplig på uppgiften även hos tillsynsmyndigheten. Det som föreskrivs i första stycket ska tillämpas också om tillsynsmyndigheten får uppgiften i sitt bistånd åt annan stat med övervakning vid sådana gemen- samma insatser för återsändande som avses i rådets förordning (EG) nr 2007/2004 av om inrättande av en europeisk byrå för förvaltningen av det operativa samarbetet vid Europeiska unionens medlems- staters yttre gränser. Första och andra stycket ska inte tillämpas på en uppgift som ingår i ett beslut hos tillsyns- myndigheten. Denna lag träder i kraft . förordning med instruktion för för polisen och Kriminalvården Härigenom föreskrivs följande. 1 § för polisen och Kriminalvården (tillsyns- myndigheten) ansvarar för den tillsyn som framgår av lagen (xxxx:xx) om tillsyn över , Säkerhetspolisen och Kriminalvården. 2 § får i de fall är organiserande medlemsstat bistå annan stat med övervakning vid sådana gemen- samma insatser för återsändande som avses i rådets förordning (EG) nr 2007/2004 av om inrättande av en europeisk byrå för förvaltningen av det operativa samarbetet vid Europeiska unionens medlemsstaters yttre gränser. 3 § ska inom sitt verksamhetsområde verka för att brister i lagar eller andra bindande föreskrifter avhjälps. Initiering, planering och handläggning 4 § Tillsynen ska bedrivas strategiskt. Den ska planeras och genom- föras med utgångspunkt i egna riskanalyser om inte annat följer av lag, förordning eller särskilt beslut från regeringen. 5 § ska i en särskild tillsynsplan ange vilken huvudsaklig inriktning tillsynen ska ha. 6 § Tillsynen ska bedrivas genom inspektioner, övervakning av utrikestransporter som kan komma att innefatta tvång, utredning av klagomål och andra undersökningar. 7 § avgör vilka klagomål som den ska ta upp till utredning. Vid handläggningen av klagomål ska frihetsberövade barns behov särskilt beaktas. 8 § ska avgöra tillsynsärenden genom skriftliga beslut. 9 § får i beslut enligt 8 § uttala sig om konstaterade förhållandens förenlighet med lagar eller andra bindande föreskrifter. ska inte i sak uttala sig om ett enskilt beslut om det kan överklagas. Detsamma gäller beslut som kan överklagas först efter att det har omprövats av den beslutande myndigheten. ska inte heller i sak uttala sig om ett enskilt beslut av eller Säkerhetspolisen om det är eller har varit föremål för åklagares prövning. 10 § Beslut enligt 8 § ska skickas eller lämnas till den myndighet som har granskats. 11 § Om tillsynsmyndigheten i sin tillsynsverksamhet finner anledning att anta att brott har begåtts ska den anmäla det till eller annan behörig myndighet. Anmälan behöver inte ske om den granskade myndighetens personal- ansvarsnämnd eller redan har anmält saken till åtal eller om anmälan av annat skäl inte behövs. Anmälan ska innehålla uppgift om de omständigheter som ligger till grund för misstanken om brott. ska till den myndighet som tagit emot anmälan lämna alla uppgifter som kan vara av betydelse för brotts- utredningen. 12 § ska samverka med andra myndigheter och internationella organ som utövar tillsyn över verksamhet som bedrivs av , Säkerhetspolisen eller Kriminalvården. ska även samverka med Åklagarmyndig- heten och . 13 § ska lämna en särskild rapport till regeringen med en sammanfattande analys av arbetet med tillsyn under det gångna verksamhetsåret. Rapporten ska innehålla de viktigaste iakttagelserna och slutsatserna av tillsynen. 14 § leds av en myndighetschef.