PREVENTIVE DETENTION AND THE MANAGEMENT OF RISK Overview of legislation and practice in the Nordic countries Tapio Lappi-Seppälä National Research Institute of Legal Policy Finland Justice Cooperation Network Warnemünde, 3-5.9.214
PREVENTIVE DETENTION IN THE NORDICS Adoption 192/193 Extension 194/5s Restrictions/Abolishment 197/8/2s Reforms 2/21s Systemic comparisons
I Adoption and expansion Norway 192/1929 Denmark 1925/193 Sweden 1927/1937 Finland 1931/1953 NOR,DEN,DWE Psychopath-institutions for abnormals FIN Prolonged confinement of habitual recidivists
The peak-years of preventive detention in the Nordics Prisoners total (abs)* Preventive detention (abs)* Population (1s) Prisoners /pop Prev. det. / pop Prev. det. % NOR 1952 1679 13 3327 5,5 3,9 7,7 DEN 1959 33 412 4549 72,5 9,1 12,5 FIN 1966 7284 389 4581 159, 8,5 5,3 SWE 1967 5438 769 7868 69,1 9,8 14,1 *Daily averages NOR = Sikring (NOU 1983:57 p.46) DEN = Forvaring 39 + Sikring 22 (Bet 667/72 p. 6 and 94) FIN = Preventive detention (Prison administration) SWE = Internering (RÅ 1975 p.164)
II The 196s social-liberal critics Against coercive care, indeterminate sanctions, overuse of prison and inflexible prison regimes Restricting preventive detention Finland in 1971: heavy restrictions Denmark 1973: heavy restrictions Sweden in 1981: abolishment Norway: abolishment of life sentence 1981 More relaxed prison regimes prison furloughs,open prisons, early release programs Scaling down other instutions: mental hospitals, alcohol treatment, youth prison
Court decisions on preventive detention in Norway 195-1976
Prisoners in preventive detention in Norway 1952-1985 25 14 All prisoners (abs) 2 15 1 5 12 1 8 6 4 2 Prev.det (abs) 1952 1955 196 1965 197 1975 198 1985 All prisoners (abs) 1589 168 1572 1829 1692 1913 1797 214 In Sikring 13 13 86 84 58 26 19 44 All prisoners (abs) In Sikring
DECLINE OF ALL INDETERMINATE SANCTIONS IN DENMARK 1965-1976 Prisoners and inmates in specific institutions* in Denmark 1965-1976 *) Youth prison, specific prison, workhouse, Forvaring, sikring, alcohol treatment All prisoners (abs) 4 35 3 25 2 15 1 5 1965 1966 1967 1968 1969 197 1971 1972 1973 1974 1975 1976 All prisoners 3288 3172 318 3336 335 3385 3597 3262 3225 3428 3317 2845 Specif ic ins titutions* 916 896 855 797 73 58 539 44 221 19 21 2 1 9 8 7 6 5 4 3 2 1 Specific institutions (abs) All prisoners Specific institutions*
16. 14. 12. 1. 8. 6. 4. 2. Rise and fall of preventive detention in Sweden 195-1982 7 6 5 4 3 2 1 All prisoners (abs) 195 1952 1954 1956 1958 196 1962 1964 1966 1968 197 1972 1974 1976 1978 198 1982 Specific institutions (abs) BrB 1965 All prisoners Forvaring (->1964)/Internering (1965-1981)
Rise and fall of preventive detention in Finland 1932-199 Prisoners and recidivist in preventive detention 193 199 (absolute figures) All prisoners (abs) 1 9 8 7 6 5 4 3 2 1 45 4 35 3 25 2 15 1 5 193 1934 1938 1942 1946 195 1954 1958 1962 1966 197 1974 1978 1982 1986 199 Reform 1953 Reform 1971 Prev.det (abs) All prisoners
III Reforms 199/2s The return of indeterminate sanctions? Norway 1997/22 reform of Forvaring (->1973 proposal) Non-responsible: compulsory care-orders Responsible + dim.responsible: Forvaring Initial minimum and maximum (15/21 y) Max extended by 5 years by the court About 14 orders/year Denmark 1997/22 Lowering the threshold of Forvaring in sexual offenses Forvaring = Indeterminate sanction for both responsible and nonresponsible Time-limits to care orders with less serious offenses Note: several type of compulsory care orders
Reforms in Finland & Sweden Finland 26 Abolishment of preventive detention Replaced by serving the sentence in full Symbolic, but important reform in principe Since 1972 no-one had served longer than nominal sentence Reform to come (215) 2 years compulsory supervision for prisoners serving their sentence in full Sweden No legislative changes, but several proposals Note: The requirement of responsibility abolished in 1962, all offenders may be sentenced to sanctions (including care-orders), but prison is forbidden for mentally ill
Finland: High risk violent recidivists serving the full sentence Small number of repeat violent offenders now serving around 35 Decision process 1st decision by the district court 2nd decision by the court of appeal not to be released on regular parole specific risk assessment (takes 3-4 weeks) In all cases release on parole takes place latest 3 months before the end of the prison term Enforcement: Normal rules Updated sentence plan, risk&need assessment, program work, prison leaves, release preparations Problem: no (or very short) supervision after release -> reform plan 215 Tapio Lappi-Seppälä Parole in Finland 213 13
IV IMPRISONMENT RATES 2-> Overall incarceration rates in the Baltic region Generally stable or declining incarceration rates in the Nordic countries, Germany and Baltic countries with the exception of Lithuainia
Imprisonment rates 2-213
V. The use of preventive detention 199-212 Stable (Norway) of slightly increased (Denmark, Finland) use of preventive detention
Preventive detention in Finland 1993-211 Prisoners 1993-211 and recidivist in preventive detention 1993 26 and prisoners serving their sentence in full 27-211 (absolute figures) All prisoners (abs) 45 4 35 3 25 2 15 1 5 All prisoners PrevDet / Serving full Reform 26 35 3 25 2 15 1 5 Prev.det (abs) 1993 1994 1995 1996 1997 1998 1999 2 21 22 23 24 25 26 27 28 29 21 211 All pris oners 3421 3275 3248 3192 2974 289 2743 2855 3135 3433 3578 3577 3888 3779 3551 3526 3492 3291 3262 PrevDet / Serving full 11 13 16 17 16 19 21 22 22 23 23 23 23 18 18 26 28 33 33
Preventive detention in Norway 1993-21 Figure. Prisoners in Sikring/Forvaring in Norway 1993-21 Sources: Danielsson, Nordisk satististik 21 & Hildebrandt 212 All pris oners (abs) 4 35 3 25 2 15 1 5 9 8 7 6 5 4 3 2 1 Pre v.det (a bs ) 1993 1994 1995 1996 1997 1998 1999 2 21 22 23 24 25 26 27 28 29 21 All prisoners 2665 2691 2613 2616 2543 2473 252 2526 2771 285 2964 39 3174 33 3482 3449 3459 3681 Forvaring 7 8 78 84 77 75 59 52 62 49 66 75 78 76 72 71 All prisoners Forv aring
Preventive detention in Denmark 1993-21 Figure. Prisoners in Forvaring in Denmark 1993-21 Sources: Danielsson, Nordisk statistik 21 & Hildebrandt 212 45 4 4 35 All prisoners (abs) 35 3 25 2 15 3 25 2 15 Prev.det (abs) 1 1 5 5 1993 1994 1995 1996 1997 1998 1999 2 21 22 23 24 25 26 27 28 29 21 All prisoners 3612 379 3655 351 363 3628 3669 358 3455 3621 3865 3982 4233 4146 3843 3717 3873 4143 Forvaring 19 21 23 23 21 2 21 25 24 24 23 26 28 28 31 33 33 36 All prisoners Forvaring
Preventive detention in three Nordic countries 1993-21 As % of all prisoners Per 1 pop 3,5 2,5 3, 2, 2,5 2, 1,5 1, 1,5 1,,5,5,, % of prisoners 1993 1995 1997 1999 21 23 25 27 29 1993 1995 1997 1999 21 23 25 27 29 Prev.det / 1 pop FIN DEN NOR FIN DEN NOR
Other related sanctions and measures to be taken in account for high risk/serious offenders Increase in the use of life sentences in Finland and Sweden 199-21 Increase in in the number of Forensic patients in Denmark 199-21
Prisoners serving life sentence and murder-convictions, FIN 199-21 18 16 14 12 1 8 6 4 2 Lifers Murder convictions 22
Psychiatric care orders in Denmark 21-21 Offenders sentenced to institutional psychiatric care orders in 211 (Nye Foranstaltningsdomme 211). All prisoners (abs) 1 8 6 4 2 4 35 3 25 2 15 1 5 Prev.det (abs) 21 22 23 24 25 26 27 28 29 21 All or der s 362 46 528 579 695 756 584 678 857 928 No time limit 156 24 223 222 273 285 222 257 36 357 All orders No time limit
VI. Systemic comparisons Interactions and internal relations
Social protection, risk management and the interacting legislative arrangements Life imprisonment Preventive detention Compulsory mental care Sentencing rules, penal latitudes Criteria of criminal responsibility
FINLAND No preventive detention, care separated from CJS, serving the sentence in full, life imprisonment Life Imprisonment Extended use Compulsory mental care - Treatment - Non-responsible Sentencing Serving the full sentence Criteria of criminal responsibility
NORWAY No life imprisonment, extended maximum prison term, preventive detention, care linked with CJS Preventive Detention - Sanction - Responsible Compulsory mental care - Treatment - Non-responsible Sentencing Prison max 21 y Criteria of criminal responsibility
DENMARK Rarely used life imp, preventive detention and care orders mixed and integrated in the CJS Life Imprisonment Very few cases Preventive detention Compulsory mental care - Treatment - Also responsible Sentencing rules Criteria of criminal responsibility
SWEDEN No concept of responsibility, no preventive detention, specific Compulsory care-orders, extended maximums and life imprisonment Life imprisonment Compulsory mental care - Sanction Sentencing Extended max. Specific sanctions