Criminal detention and alternatives: fundamental rights aspects in EU cross-border transfers
provision of state-guaranteed legal aid.321 In Finland and
Sweden it is believed that such assistance is only needed
in exceptional cases, but is nevertheless available.
FRA’s research shows that, in Austria and Malta, the
laws implementing the Framework Decision on the ESO
and the Framework Decision on probation and alternative sanctions do not regulate the issue, which, in the
absence of practice, is therefore not clear.
Conclusion and FRA Opinion
EU Member States are still in the process of establishing
relevant rules on transferring prisoners, probation orders
and supervision measures under the three Framework
Decisions, and clearer practices will likely emerge in
future. From a fundamental rights perspective, affected
persons should ideally not be treated as mere objects
of transfers but instead be involved in the process to
ensure that they are aware of possibilities for transfers,
and that they understand the transfer process and its consequences. For instance, social rehabilitation should not
be used deceptively or as an excuse to effectively ‘deport’
persons. Adequately involving potential transferees in the
process will support the Framework Decisions’ overarching goals, including social rehabilitation and, thus, societal
interests. Involvement includes being properly informed
about options and consequences of transfers, as well as
a realistic time line for the process. This would also be
in the spirit of Article 1 of the EU Charter of Fundamental Rights, which guarantees the right to human dignity.
FRA’s research shows that further safeguards are
needed to ensure the overall fairness of the transfer
process and to achieve the overall goals of the instruments. For example, findings highlight considerable
divergence among the EU Member States when it
comes to informing persons potentially subjected to
transfer and ways of obtaining their consent.
It is important that foreign nationals are provided with
translations of essential documents and interpretation
to protect their rights. Directive 2010/64/EU on the right
to translation and interpretation in criminal proceedings
could be used to inspire responses to such needs in the
context of transfer proceedings. EU-wide guidance on
information about cross-border transfer proceedings and
their implications could draw on Directive 2012/13/EU on
the right to information in criminal proceedings. Legal
aid may also be needed, at least in particular cases.
Where consent is required, the applicable requirements
need to be stricter, making sure that consent is provided based on objective facts about transfers and
321 Lithuania, Seimas of the Republic of Lithuania (2005), Law
on State-guaranteed Legal Aid (Valstybės garantuojamos
teisinės pagalbos įstatymas), No. X-78, 20 January 2005.
98
their consequences. Where consent is required, it would
appear logical to grant a right to revoke such consent,
at least during a certain period, given the very serious
consequences of such consent. Additionally, for this
reason, a mechanism to ensure that consent was provided in full understanding of the consequences should
be introduced. Where there is no consent requirement,
it would similarly be logical to include a right to appeal
against transfers. The right to appeal or a right to judicial
review of a decision taken by an administrative body is
a well-established aspect of rule of law-based societies, and expressed in the EU Charter of Fundamental
Rights (Article 47); it would also boost the instruments’
credibility and overall mutual trust. Finally, the possibility, under all three decisions, for issuing states to stop
transfers (withdraw certificates) at any point before
actual execution/supervision has begun in executing
states is important. States could make use of this option
if it becomes clear that a transfer would not serve the
goals of the instruments, such as social rehabilitation.
FRA Opinion 8
To ensure effective implementation of the three
Framework Decisions, and to stay true to their
objectives, but also to ensure compliance with
the EU Charter of Fundamental Rights, in particular
the right to human dignity (Article 1), the EU and
the Member States need to take further action to
ensure that the three Framework Decisions cannot
be interpreted in a manner that sees potential
transferees as mere objects of transfer. Instead,
all potential transferees should be involved in
the process to ensure that they are aware of
possibilities for transfers, and that they understand
the transfer process and its consequences.
Minimum rules – which could be inspired by the EU
legislation on interpretation and translation, as
well as on the right to information – should be
established to ensure that consent is provided
based on a sufficient level of information.
Similarly, when consent is not required (possible
under the Framework Decision on transfer
of prisoners), it should be ensured that the
information provided is adequate for a sufficient
level of understanding of the process and its
consequences. Additionally, where consent for
transfers is required, EU Member States should
explicitly allow for withdrawals of such consent
within a certain time-limit given the potential
consequences of transfers for individuals. Member
States should also consider an appropriate
remedy for cases where potential transferees
object to transfers. To strengthen mutual trust
and, by extension, mutual recognition, Member
States should apply similar rules on how to inform
persons potentially subjected to transfer and how
to obtain their consent or inform them about the
transfer process and its consequences.
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