sou · H4B319 · 2016-03-11 00:00:00 — Utredningen föreslår att artiklarna i används mer, att man tänker på barnets bästa och att man lyssnar på vad barnet tycker. De föreslår därför att det ska stå i utlänningslagen att man ska ta reda på vad som är bäst för barnet. Det som står i utlänningslagen om barnets bästa ska vara tydligare kopplat till . Utlänningslagen är en lag med regler om vem som får stanna i och vem som inte får stanna. Utredningen föreslår också att det ska skrivas in i utlänningslagen att barnet ska få information om det som är viktigt, till exempel information om sina rättigheter och vad det betyder om en myndighet bestämmer på ett sätt eller på ett annat sätt. Sammanfattning på lättläst svenska Utredningen föreslår att barnet ska få veta varför myndigheten har bestämt så som de har gjort. Det är viktigt att barnet förstår informationen. Därför måste informationen vara så att den passar för barnet. Personen som ger informationen ska kontrollera att barnet har förstått. Utredningen föreslår att utlänningslagen ändras så att det står att barnet har rätt att säga vad det tycker om allt som handlar om barnet. Då passar lagen bättre med artikel 12 i . Stöd och service till barn med funktionsnedsättning En annan lag är den om stöd och service till vissa funktionshindrade. Lagen kan också skrivas med tre bokstäver – LSS. Lagen ger särskilda rättigheter till personer som kan vara att ha svårt att gå eller svårt att förstå. En del barn med funktionsnedsättning kan därför behöva särskild hjälp. Barnet kan till exempel behöva hjälp att komma ut till bibliotek eller träning. Det är exempel på LSS-insatser. Utredningen föreslår att ändra i LSS så att lagen passar bättre med artiklar om barnets bästa och barns möjligheter att få säga vad de tycker. Utredningen tycker också att barnet ska få information som det kan förstå. Personen som ger informationen ska kontrollera att barnet har förstått. Sammanfattning på lättläst svenska Det är viktigt att veta att barn får den hjälp och det stöd de har rätt att få. Därför föreslår gruppen att myndigheten ska kartlägga LSS-insatser till barn och sedan ge förslag på vad som går att göra för att barnen ska få det bättre. Barn som sett våld i familjen Barn som har sett våld i familjen är att barnet har sett våld mellan familjemedlemmar. Utredningens kartläggning har visat att lagen inte stämmer helt med . kanske inte barnet har fått den hjälp det behöver därför att föräldrarna har sagt nej till hjälp. Gruppen tycker att barn som är och som har sett våld i familjen, måste få stöd och hjälp även om en förälder inte vill. Barn som varit med om våld i familjen Barn som själv varit med om våld i familjen, är att någon familjemedlem har slagit barnet eller har skadat barnet. Här fattas också text i lagen för att den ska passa med . Kartläggningen visar att den som har slagit ett barn ibland inte har fått något straff, därför att det inte går att bevisa att barnet är skadat och haft ont. Sammanfattning på lättläst svenska Det stämmer inte med att barn som har varit med om våld i familjen behandlas sämre än vuxna. Utredningen föreslår att särskilt lägga till text i om misshandel av barn. I finns de viktigaste lagarna om straff. Straffet för misshandel av barn är fängelse i högst . För grov misshandel är straffet fängelse i högst . För synnerligen grov misshandel av barn är straffet fängelse i högst . Misshandel kan vara att slå någon eller sparka någon. Grov misshandel kan vara att misshandla någon mycket. Synnerligen grov misshandel kan vara att misshandla en person väldigt mycket. En förälder eller någon annan som har ansvar för barnet kan dömas. För att en person som slår barnet ska få ett straff, ska det inte längre behövas bevis för att det har gjort ont. De fyra områden som utredningen har kartlagt är mycket olika, men det är ungefär samma saker som brister. Därför kan man tro att det finns fler områden där inte helt används i svenska samhället. Sammanfattning på lättläst svenska Utredningen tycker att barnets bästa ska fortsätta att skrivas in i andra lagar som gäller barn. Barns rätt att säga vad de tycker och att en vuxen lyssnar på dem ska också fortsätta att skrivas in i andra lagar. Att barn får säga vad de tycker och hur de vill ha det är en del i att förstå barnets bästa. Kunskap om sina rättigheter Barns möjlighet att få sina rättigheter och att använda sina rättigheter behöver bli bättre. Därför behöver barn kunskap om rättigheterna och vilka myndigheter som arbetar för barns rättigheter. Utredningen föreslår att myndigheter som är viktiga för barns rättigheter ska göra sitt arbete känt för barn och tillgängligt och anpassat för barn. Det kan till exempel vara att myndigheter har information på sin webbplats som är lätt att hitta, lätt att läsa och lätt att förstå. kan få i uppdrag att hjälpa myndigheterna i arbetet med detta. Utredningen tycker också att regeringen ska undersöka om ibland ska kunna prata för ett barn och hjälpa enskilda barn att använda sina rättigheter. Sammanfattning på lättläst svenska har arbetat länge med att göra till svensk lag. Men arbetet är inte färdigt än och används inte tillräckligt mycket i samhället . Utredningen tycker därför att personer som arbetar på myndigheter och i kommun och landsting ska få lära sig mer om och om barns rättigheter. Kunskaperna ska göra att de förstår bättre hur de kan använda barns rättigheter i sitt eget arbete. De ska också lära sig hur man lyssnar på barn på ett bra sätt, hur man får barn att berätta och hur mycket barn minns. •Barnombudsmannen ska ge utbildning till myndigheter så att de tänker på barns rättigheter i sitt arbete. är ombudsman för alla barn . •Statliga myndigheter som är viktiga för att barn ska få de rättigheter som står i konventionen ska kontrollera att personalen har kunskaper om barns rättigheter och vad barn behöver. Det är bra om alla barn får information i skolan om vart de kan ringa eller skriva för att få stöd, om de har problem och behöver få hjälp. Sammanfattning på lättläst svenska Barnrättighets-byråer är organisationer som barn kan kontakta för att få information och stöd. De är inte myndigheter. Utredningen tycker att det är viktigt med barnrättighets-byråer och att regeringen ska fundera på hur barnrättighets-byråerna kan få pengar för sitt arbete. The report contains proposals for an act on incorporating the UN Convention on the Rights of the Child (CRC) and presents a number of measures that need to be taken upon incorporation, and a number of other legislative proposals. It is proposed that the legislation enter into force on 1 January 2018. The Inquiry on the rights of the child was tasked with surveying, within particularly important areas, how the application of laws and other regulations complies with the rights of the child under the CRC and the two Optional Protocols to which has acceded. In the event of clear deviations, the Inquiry’s remit includes pre- senting proposals for measures and, if necessary, proposing legislative supplements and clarifications to strengthen the rights of the child. In addition, the remit includes analysing the advantages and dis- advantages of incorporating the CRC and the two Optional Protocols into Swedish law. In view of the Government’s express wish to give the CRC the status of Swedish law, alongside continued transformation the Inquiry has also been tasked with presenting proposals for an act on incorporating the CRC, and highlighting certain legal and practical issues that may arise in the event of incorporation. Surveying how application of the law complies with the rights of the child under the CRC The Inquiry’s survey included reviewing the application of the law and how it complies with the rights of the child under the CRC and the Optional Protocols to which has acceded. Areas that lack legislative provisions in relation to the rights contained in the CRC thus fell outside the remit. The starting point for the survey was the rights of the child under the CRC. The rights perspective, with a focus on the general principles, has permeated the survey with regard to the selection of survey areas and questions and analysis of the survey results. The following are areas that the Inquiry, after an identification process, found to be particularly important to survey: •children in the migration process; •support and service to children with impairments; •children who have witnessed domestic violence; and •children who are victims of domestic violence. The areas selected are ones where children find themselves in a vulnerable situation and where authority decisions can have major consequences. Areas that, at the time of the survey were, or had recently been, subject to other review were not included in the survey. The survey was conducted on behalf of the Inquiry by researchers working at universities and higher education institutions. It reflects various types of decisions – court judgments and administrative decisions – the latter taken by both central and local government. The aim of the survey was to provide a picture of the impact of the CRC – and particularly the general principles – in the application of the law. The researchers presented their survey results and conclusions in individual reports1, after which the Inquiry analysed the reported 1 These reports are available from the Affairs and via the Inquiry on the rights of the child. Once the Inquiry’s work is completed, its archive docu- ments will be submitted to the National Archives. The Inquiry based its analysis on of the Child’s interpretations expressed in the Committee’s general comments. Observations regarding the surveyed areas The survey demonstrates a number of shortcomings when it comes to the impact of the rights of the child under the CRC. The short- comings are most obvious with regard to the principle of the best interests of the child and the child’s right to express his or her views. Despite explicit provisions on the best interests of the child in Swedish legislation in three of the surveyed areas, assessments are often not based on the situation of the individual child. Instead, the best interests of the child are assessed on the basis of general state- ments in the legislative history, policy documents and other guide- lines. In addition, it is not possible to interpret considerations and assessments made by authorities in cases where the interests of the child must be weighed against other interests. With respect to children’s opportunities to be heard, the survey shows that often no discussions are held with children, and in many cases no motivation is given for this decision. In cases where children are heard, in many cases the discussions are about something other than what is relevant for producing complete background material for a decision. The survey also shows that the perception of children and how children are treated by authorities is not based on children as holders of rights. This can sometimes present itself as discrimination in relation to adults. It applies in the area of children who are victims of domestic violence, for instance; actions that would have been punishable if perpetrated against an adult can be exempt from punish- ment with reference to the parents’ position with regard to their children. Another example is the migration area, where a child’s own grounds for asylum are only examined to a very limited extent in permit decisions. Advantages and difficulties of incorporating the CRC A strengthened standing for the rights of the child and a sharper legal tool As a state, is already bound by the CRC within the meaning of international law. An obligation follows from this to live up to the requirements imposed by the Convention. Courts and other authorities are obliged to, as far as possible, interpret Swedish domestic legislative provisions in conformity with the Convention. Incorporation would mean that officials and decision-makers would have to relate to the CRC differently than today, as the Convention would become applicable as law and could be used as the sole basis for authorities’ decisions in cases and matters. Through incorporation, the CRC would become applicable in all legal areas. It would also be clear that the Convention is to be seen as a whole and that the articles in the Convention are to be interpreted in relation to each other, which can be expected to lay the foundations for a more rights-based approach. Incorporation can also be expected to impact other regulation, mainly as incorporation will probably hasten the transformation of CRC provisions. Through incorporation, the rights of the child may be expected to have a more prominent place in public debate and legislative matters. Shortcomings in Swedish legislation can be identified and addressed. Convention provisions can also be expected to influence the design of other legislation more directly than has been the case up to now. Further, a substantial advantage of incorporating the CRC is that it can serve as a supplement when other legislation does not fully protect the rights of the child under the Convention. When given status as a law, the Convention will also take precedence in any conflict between the Convention provisions and legislation of lower rank. All in all, incorporation would mean that Convention rights would have a strong standing, not only formally but also in real terms. The rights of the child would be taken into account to a greater extent than at present. Incorporation of the CRC marks a political will to safeguard the rights of the child. It shows that the rights of the child are a priority issue. However, in practice, the political signal will need to be accompanied by concrete measures. Incorporation in itself is in- sufficient for the rights of the child to have an impact. Incorporation can be said to have a pedagogical significance. On in- corporation, the particular human rights of children will be contained in one act. The Convention as a whole will be more visible and it will be clear that the rights in the Convention are linked to and pre- suppose each other. Difficulties in the application of the law Incorporation of the CRC will lead to a number of benefits. However, there are also some difficulties and challenges to take account of. Incorporation is an effective way of enhancing the visibility of these rights. However, some Convention articles are generally framed and contain vague wording that can offer considerable scope for interpretation. Vague and generally framed wording naturally leads to difficulties in practical application. However, the Convention as a whole and of the Child’s general comments may provide some interpretive guidance. The legal scheme in the Convention also differs from the one that applies to domestic legislation. However, the influence of EU law and Convention on Human Rights (ECHR) means that, for the past several decades, legal practitioners have been accustomed to dealing with regulatory frameworks written differently than the traditional Swedish system of relatively detailed regulation. EU law has also led to the use of principles, such as the principle of proportionality, taking on greater importance. In other words, the fact that the CRC design differs from Swedish legal tradition would not necessarily lead to any extensive problems regarding application of the law. One difficulty in applying the CRC may be that it lacks legislative history, equivalent to the Swedish documents, which can give interpretive guidance. However, this does not mean that there is no guidance for interpreting the Convention. of the Child has, for instance, drafted general comments with regard to a number of articles that can be of guidance in applying the law. Another difficulty with the CRC is that certain articles can be said to be directly applicable – self-executing – while others are not. The problem is well-known in single-tier systems, but Swedish courts and other authorities responsible for the administration of do not have the same experience of deciding on this type of matter. It is important that this issue be given attention and be discussed in connection with the incorporation of the CRC. Unlike what applies for EU law and the ECHR, there is no inter- national court that can interpret the meaning of the Convention in more detail, which can lead to difficulties in domestic application of the law. However, experiences in indicate that, in practice, this has not been perceived as a major problem. Domestic Norwegian case-law developed relatively soon after incorporation, thereby satisfying lower courts’ need for guidance. A similar develop- ment could probably be expected in . In so far as interpretation of the Convention’s articles and thereby how the articles will be applied is uncertain, there may be a risk that the basic prerequisite of legal certainty – predictability – will not be satisfied in the event of incorporation. Transformation increases predictability and provisions can be adapted to areas of activity. Transformation therefore provides better support for authorities responsible for the administration of . However, incorporation does not rule out future transformation. On the contrary, the Inquiry’s view and also a starting point for the Inquiry’s work is that transformation should continue also after the CRC has been given the status of law. In the event of incorporation, courts and other authorities responsible for the administration of (mainly the highest instances), will interpret the provisions and thereby also take decisions that, according to Swedish legal tradition, are normally carried out by the legislators. Incorporation can be seen to some extent as a power shift. However, this is not a viable objection to incorporating Even if the interpretation of an incorporated Convention is different to the interpretation of national law – where the situation can be addressed through an amendment of an act – the legislator will continue to have certain possibilities to influence interpretation of the rights in the Convention through continued transformation. It should also be stressed that judicial examination is itself a pro- tection to ensure that the rights of the individual are respected. The Inquiry’s proposals Convention on the Rights of the Child as Swedish law Incorporation through a special act The Inquiry’s remit includes submitting proposals for an act on the incorporation of the CRC. However, the remit does not include submitting proposals for an act on the incorporation of the two Optional Protocols to the Convention to which has acceded. The report proposes that Articles 1–43.1 and 44.6 of the CRC, in the wording of the original text, apply as Swedish law. The original texts are to have the same validity. Alongside incorporation, continued transformation is required for the rights of the child to have the desired impact. In addition, a combination of various measures is required, such as legislation, information, education and coordination between various actors at different levels in society. Principles in the event of a conflict between the provisions of the CRC and domestic legislation The basic premise for the Inquiry’s work is that the CRC should be given the status of an ordinary law. With the aim of facilitating for various actors, the report gives an account of the principles that may arise in the event of a conflict between the provisions of the incorporated CRC and other Swedish legislation. The Inquiry’s assessment is that actual conflicts, in the sense of incompatibility or contradiction, between the CRC and other Swedish legislation would probably seldom arise. The Inquiry considers that conflicts that may arise could be resolved using various methods of applying the law. conflicts should also, if necessary, be integrated into subsequent transformation. When evaluating incorporation of the CRC into Swedish law, there is reason to highlight the question of how possible conflicts between the CRC and other legislation have been dealt with. With the aim of facilitating application of the law and legislation for various actors, the report gives an account of legal and practical issues that relate to CRC interpretation. Incorporating the CRC presupposes that legal practitioners are familiar with the Convention and how it should be interpreted and applied. This is why education and training and professional develop- ment regarding the practical application of the Convention in relation to their own activities is important. The Inquiry has been in contact with a number of government agencies and the Authorities and Regions to learn what needs they see in their activities for support and written guidance when interpreting the CRC. In this context, a need was expressed for written guidance that may provide support for interpreting and applying the incorporated CRC. Such guidance should be based on Swedish conditions. It should be gathered in one place and made easily accessible. Measures that may need to be taken in view of incorporation Even though only the wording of the original text will have the force of law, as a rule, acts on incorporation contain an annex with a Swedish language translation of the Convention. The Inquiry has identified certain shortcomings in the Swedish translation of the CRC and therefore proposes that a review be carried out of the Swedish translation of the Convention. Incorporation of the CRC will probably raise questions that authorities and decision-makers have not previously had reason to consider. For this reason, it is important that situations that may arise in practical application, once the CRC has become law, are discussed as early as possible in courts and other authorities. The Inquiry therefore proposes that, in their appropriation directions, the and other central authorities be instructed to discuss which challenges and issues they may face following incorporation, based on the mandate and activities of each authority. If there are legislation needs, it is important that these be addressed and communicated to the Government Offices. In applying the law, the question of whether a certain provision in the Convention is self-executing may arise. Ultimately, it will be the responsibility of courts and other authorities with responsi- bility for the administration of to assess, based on the specific situation, whether or not a provision is self-executing. To increase knowledge and reach a consensus as far as possible, the Inquiry proposes that this type of issue also be subject to discussion in the courts and other authorities with responsibility for the administration of . Examining the issue of effective legal remedies in the event of a violation of the Convention was not part of the remit of the Inquiry on the rights of the child. Effective legal remedies encompass various aspects, one of which is financial compensation. Given the importance of the damages issue and the uncertain legal situation, the issue of damages in the event of violation of rights under the CRC should be highlighted in the Government Offices’ future work. However, uncertainty regarding the consequences of the reform in the area of right to damages should not prevent incorporation of the Convention. Assessments and proposals for the surveyed areas The survey commissioned by the Inquiry has included the areas of children in the migration process, support and service to children with impairments, children who have witnessed domestic violence and children who are victims of domestic violence. Based on the survey results, it can be noted that the CRC has not had sufficient impact on the application of the law in the four selected areas, and there are clear shortcomings in relation to the rights of the child under the Convention. In three of the four surveyed areas, there are special provisions based on Article 3 regarding the best interests of the child and