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ALTERNATIVES TO

PRISON IN EUROPE

France

Marie Crétenot

European Prison Observatory. Alternatives to detention

With financial support from the

Criminal Justice Programme of

the European Union

ALTERNATIVES TO

PRISON IN EUROPE

France

Marie Crétenot

European Prison Observatory. Alternatives to detention With financial support from the Criminal Justice Programme of the European Union European Prison Observatory Alternatives to Prison in Europe. France 5

ALTERNATIVES TO PRISON IN EUROPE. France

Marie Crétenot

Antigone Edizioni

Rome, October 2015

ISBN 978-88-98688-19-7

Alternatives to prison in Europe. France by Marie Crétenot is licensed under a Creative Commons Attribution-NonCommercial-NoDerivs 3.0 Unported License.

Associazione Antigone Onlus

Legal residence: Via della Dogana Vecchia, 5 - 00186 Roma

Tel. +39 064511304

segreteria@associazioneantigone.it www.associazioneantigone.it

European Prison Observatory

Project staff: William Aloskofis, Mónica Aranda Ocaña, Roberta Bartolozzi, Federica Brioschi, Marie

Crétenot, António Pedro Dores, Omid Firouzi Tabar, Patrizio Gonnella, Catherine Heard, Anhelita Kamenska,

Dimitris Koros, Nikolaos Koulouris, Kristţne Laganoǀska, Barbara Liaras, Ricardo Loureiro, CĠcile Marcel,

Susanna Marietti, Athanassia Mavromati, Will McMahon, Helen Mills, Michele Miravalle, Mauro Palma,

Grazia Parisi, Artur Pietryka, Adam Ploszka, Nuno Pontes, Jose Ignacio Rivera Beiras, Daniela Ronco, Alessio

Scandurra, Sofia Spyrea, Giovanni Torrente, Jean-Luc Untereiner, Francesca Vianello, Sofia Vidali, Esme

Waterfield.

www.prisonobservatory.org This publication reflects the views only of the author, and the European Commission cannot be held responsible for any use which may be made of the information contained therein.

With financial support from the

Criminal Justice Programme of

the European Union European Prison Observatory Alternatives to Prison in Europe. France 6 INDEX

THE EUROPEAN PRISON OBSERVATORY ........................................................................................................... 7

ALTERNATIVES TO DETENTION IN EUROPE ....................................................................................................... 7

PART ONE. GENERAL DATA................................................................................................................................ 9

Imprisonment and alternatives to custody: an overview ............................................................................. 9

Probation practices ...................................................................................................................................... 13

Procedural guarantees ................................................................................................................................ 19

Staff ............................................................................................................................................................. 20

PART TWO. SPECIFIC PROGRAMMES .............................................................................................................. 22

Alternatives to pre-trial detention .............................................................................................................. 22

Alternative sanctions ................................................................................................................................... 27

Alternatives during execution ..................................................................................................................... 33

European Prison Observatory Alternatives to Prison in Europe. France 7

THE EUROPEAN PRISON OBSERVATORY

The European Prison Observatory is a project coordinated by the Italian Ngo Antigone, and

developed with financial support from the Criminal Justice Programme of the European Union.

The partner organizations are:

Università degli Studi di Padova - Italy

Observatoire international des prisons - section française - France Special Account of Democritus University of Thrace Department of Social Administration (EL

DUTH) - Greece

Latvian Centre for Human Rights - Latvia

Helsinki Foundation for Human Rights - Poland

ISCTE - Instituto Universitário de Lisboa - Portugal Observatory of the Penal System and Human Rights - Universidad de Barcelona - Spain Centre for Crime and Justice Studies - United Kingdom

The European Prison Observatory studies, through quantitative and qualitative analysis, the

condition of the national prison systems and the related systems of alternatives to detention, comparing these conditions to the international norms and standards relevant for the protections of detainees' fundamental rights. The European Prison Observatory highlights to European experts and practitioners 'good practices' existing in the different countries, both for prison management and for the protection of prisoners' fundamental rights.

Finally it promotes the adoption of the CPT standards and of the other international legal

instruments on detention as a fundamental reference for the activities of the available national monitoring bodies. www.prisonobservatory.org

ALTERNATIVES TO DETENTION IN EUROPE

Various international recommendations on community sanctions and measures promote the use of alternatives to imprisonment in order to reduce recidivism and the prison population. At the same time, legislators, academics and public administration members within the EU know that imprisonment is not the only way to balance security needs and social justice, and every Member State has implemented alternatives to imprisonment systems, with their own rules, organisational set-up and procedures.

The ͞European Obserǀatory on Alternatiǀes to Imprisonment" project aims to create a functional

network of partner countries, in order to reduce the disharmony and gaps among the systems. The main goal of the project is to provide, in a comparative way, a comprehensive picture of alternatives to detention in force within each partner country. These pictures would enable us to identify those alternative measures to detention that have led to: a decrease in detention rates the application of rehabilitative programs

To do so, starting from historical analysis, the project's objectiǀe is to compare the legal framework

of the systems, their goals, the contents of the measures and their impact on the penitentiary system as a whole. European Prison Observatory Alternatives to Prison in Europe. France 8 European Prison Observatory Alternatives to Prison in Europe. France 9

PART ONE. GENERAL DATA

Imprisonment and alternatives to custody: an overview Political climate regarding prison numbers since 2000 The new government and the nomination of Christiane Taubira as Minister of Justice in 2012 have led to a rupture in criminal policy, in a context of continually increasing prison population and a large programme of construction of new prisons. The policy of consistently more harsh repression mechanisms in case of recidivism and less access to penalty arrangements for repeat offenders has been called into question. And, rare event, the Ministry of Justice wanted to make an assessment of the policies implemented previously. A consensus conference on recidivism prevention, bringing

together national and foreign researchers, judges, probation officers, experts, associations, elected

officials, etc. was organized in February 2013 in order to take stock of the situation and prepare a reform.

The jury of the conference chaired by Françoise Tulkens, ex vice-president of the European Court of

Human Rights, made several recommendations, including : limitation of offences punishable by a prison sentence a halt to the increasing number of prison places suppression of mechanisms harshening repression in case of recidivism and reducing access to early release establishment of a system of automatic conditional release establishment of a probation sentence encompassing all other alternative sentences However, these recommendations and the reform project that followed have been severely criticised by the opposition, accusing the government of being soft on crime. And, not wishing to be seen as being soft on crime, the Prime Minister opposed wide-ranging reform. Five presidential arbitrages were held. And, finally, a disappointing reform was adopted in August 2014. Moreover,

since the terrorists attacks in January 2015, the political climate has definitely changed : time for

such reform is finished. Nevertheless, the consensus conference has created an awareness among rehabilitation and

probation services and some magistrates of the necessity to change practices and to take

European probation rules into account.

Reforms to alternatives to detention since 2000

Law of 15 June 2000 : stricter legal framework of pre-trial detention (principle that it should be

pronounced only exceptionally, decision to be made by a specific judge not in charge of

investigations, limitation of the duration of pre-trial detention, creation of a Monitoring

Commission for pre-trial detention, principle of full and mandatory compensation for damage sustained in case of dismissal or acquittal, etc.), reform of conditional release (widening of the criteria for access to conditional release, removing the jurisdiction of the Minister of Justice for European Prison Observatory Alternatives to Prison in Europe. France 10 sentences of more than 5 years, jurisdictionalization of the decision of the judge in charge of sentence enforcement : contradictory debate, right of appeal ). Law of 24 November 2009 : assertion of the principle that in correctional issues prison sentence shall only be pronounced as a last resort (except in case of recidivism); assertion of the principle

that all persons sentenced to imprisonment shall, wherever possible, benefit from sentence

adjustments to promote rehabilitation; widening of the criteria for access to sentence adjustments before and during the execution of prison sentence (quantum of penalty up to two years (except recidivism), instead of one year)

And, finally, the law of 15 August 2014 (the results are disappointing compared to the initial

ambitions but the reform includes improvements nonetheless) : suppression of minimum sentences in case of recidivism, suppression of other mechanisms harshening repression in case of

recidivism (automatic revocation of suspended sentence in case of new offence for example),

widening of the criteria for access to sentence adjustments (͞libĠration sous contrainte"), same

criteria for access to conditional release for repeat offenders and non repeat offenders,

establishment of a new probation sentence (͞contrainte pĠnale"), etc. Total prison population: daily rate between 2000-2014

In France, the prison population is defined as all persons listed on the prison register. But all these

persons are not inmates in the strict sense. Among them some have a sentence adjustment (day

release, placement in society, electronic monitoring) : they are listed on the prison register but can

live and sleep outside prison. In the data of the Ministry of Justice are thus distinguished those housed in prisons and the others (since March 2004).

Prison population

housed (inmates)

Prison population

non housed

Prison population

(total)

31/12/14 66 270 11 021 77 291

31/12/13 67 075 10 808 77 883

31/12/12 66 572 10 226 76 798

31/12/11 64 787 8 993 73 780

31/12/10 60 544 6 433 66 977

31/12/09 60 978 5 111 66 089

31/12/08 62 252 3 926 66 178

31/12/07 61 076 2 927 64 003

31/12/06 58 402 2 001 60 403

31/12/05 58 344 1 178 59 522

31/12/04 58 231 966 59 197

31/12/03 59 246

31/12/02 55 407

31/12/01 48 594

31/12/00 47 837

European Prison Observatory Alternatives to Prison in Europe. France 11 Prison population rate per 100,000 population (based on the daily rate prison population 2000 - 2014)

General population Prison population rate per

100 000 population

Inmates rate per

100 000 population

31/12/14 66 317 994 116,5 99,9

31/12/13 66 020 994 118,0 101,6

31/12/12 65 525 420 117,2 101,6

31/12/11 65 241 241 114,8 100,8

31/12/10 64 933 400 103,1 93,2

31/12/09 64 612 939 102,3 94,4

31/12/08 64 304 500 102,9 96,8

31/12/07 63 961 859 100,1 95,5

31/12/06 63 600 690 95 91,8

31/12/05 63 186 117 94,2 92,3

31/12/04 62 730 537 94,4 92,8

31/12/03 62 251 062 95,2 95,2

31/12/02 61 824 030 89,6 89,6

31/12/01 61 385 070 79,2 79,2

31/12/00 60 941 410 78,5 78,5

Number of incarcerations

2014 86 683

2013 89 290

2012 90 962

2011 88 058

2010 82 725

2009 84 355

2008 89 054

2007 90 270

2006 86 594

2005 85 542

2004 84 710

2003 81 905

2002 81 533

2001 67 308

2000 65 251

European Prison Observatory Alternatives to Prison in Europe. France 12

Number of pre-trial detainees 2000-2014

Among the pre-trial population are those awaiting their first court appearance those whose

judgment is under appeal and those who have been condemned during summary trial but whose conviction is not yet final (non expiration of the appeal period, 10 days).

Pre-trial population

awaiting the first instance

Pre-trial population whose

conviction is not yet final (non expiration of the appeal period)

Pre-trial population

whose judgment arequotesdbs_dbs46.pdfusesText_46

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