European Crime Prevention Network

(1)

COUNCIL OF THE EUROPEAN UNION

Bruxelles, 25 Avril 2002

8327/02

CRIMORG 27

REPORT

from : The Presidency

to : Multidisciplinary Group

Subject European Crime Prevention Network (EUCPN) First Annual Report: 2001

Please find enclosed the the first Annual Report 2001 of the European Crime Prevention Network (EUCPN).

(2)

European Crime Prevention Network

EUCPN

First Annual Report:

2001

1.

2.

(3)

Based on the multi-disciplinary approach of EUCPN – including government representatives, academics and actors in the field of crime prevention – it can be expected to make an effective contribution to developing the various aspects of crime prevention at Union level. In the year 2002, the EUCPN aims to deliver clear, concrete results and above all ensure the dissemination of knowledge on crime and crime prevention to a wide audience.

I am proud to present this first report on the development and achievements of EUCPN to the Council along with some thoughts on EUCPN’s future contribution to the prevention of crime and to an area of freedom, security and justice.

Madrid, 19 April 2002 Justo Redondo Gutiérrez Chairman of the EUCPN

Jaap De Waard

Head of Secretariat of the EUCPN

(6)

III. 1 The European Crime Prevention Network, EUCPN, according to the Council decision

The Council decision of 28 May 2001¹ outlines the objective, tasks and organisational structure of EUCPN.

A. Contact points and National representatives

The EUCPN consists of a maximum number of three contact points from each Member State and one from the Commission. At least one of the contact points from each Member State shall represent the national authorities competent for crime prevention. Researchers or academics, as well as actors in crime prevention can be designated as contact points but Member States should, in any instance, ensure that such groups are involved in the work of EUCPN through the contact points.

One representative of each Member State, representing the national authorities competent for crime prevention, shall be designated as a National representative. It is the task of the National representatives and the Secretariat to ensure the proper functioning of EUCPN in accordance with the Council decision.

B. Scope of EUCPN’s activities

EUCPN shall cover all types of criminality, but pay particular attention to juvenile, urban and drug- related crime. Crime prevention is defined as measures that aim to or otherwise reduce crime or citizens feeling of insecurity, either through directly deterring crimes or through measures designed to reduce the potential for crime or the causes of crime. It includes work by government, criminal justice agencies, other national and local authorities as well as private and voluntary sectors, researchers and the public.

C. Tasks

The core objectives of EUCPN are to contribute to developing the various aspects of crime prevention at Union level and support crime prevention activities at local and national level. More specifically, the EUCPN shall:

1 OJ L 153, 8.6.2001, p. 1

(7)

 Collect and analyse information on crime and crime prevention and make the knowledge thus collated easily accessible to the Council and the Member States as well as in other ways provide its expertise to the Council and the Commission;

 facilitate cooperation, contacts and exchange of information and experience at Union and national levels;

 contribute to identifying and developing the main areas in the crime prevention field; and

 organise activities designed to promote these issues, stimulate and improve the exchange of experience and best practice and disseminate the results of the EUCPN’s activities.

D. Working methods

EUCPN shall favour a multidisciplinary approach and, through the contact points, be in close contact with different actors in the Member States. It shall associate Europol and the European Monitoring Centre for Drugs and Drug Addiction, but also other relevant bodies, with the work in matters with which they are concerned. EUCPN shall use and promote the results of relevant projects that has been funded through Union programmes. EUCPN shall also set up and operate a website, containing information on EUCPN and on crime and crime prevention at Union and national levels.

E. EUCPN and National representatives meetings

EUCPN and the National representatives respectively shall meet at least once every six months on the invitation of the current Presidency. The Network National representatives shall meet to decide on the annual programme, including priority fields, main specific actions and the structure of the web site. They shall also draw up and adopt the Rules of Procedure and the annual report. These decisions of the National representatives are adopted by unanimity.

F. Annual programme and annual report

EUCPN shall report to the Council on its activities each year, through the competent working bodies, also indicating priority areas in its work programme for the following year. The Council shall take note of and endorse the report and forward it to the European Parliament.

G. Secretariat

The Secretariat for EUCPN is provided by the Commission, but works closely together with the National representatives. It has four main responsibilities:

(8)

 Drafting of the annual programme and the annual report;

 everyday Network activities involving collating, analysing and disseminating information;

 assistance to EUCPN members in devising, formulating and implementing projects; and

 establishment and maintenance of the EUCPN website.

H. Budget

The general budget of the European Union finances the Network Secretariat and its activities. There is no budget for costs relating to EUCPN or National representatives meetings nor for other activities that cannot be defined as activities of the Network Secretariat. According to article 5 (4) of the Council Decision of 28 May 2001the Network national representatives shall decide on the Network’s annual programme including a financial plan.

I. Evaluation

The Council shall evaluate the activities of the EUCPN after three years – May 2004.

(9)

IV. 2 EUCPN in practice during 2001 – institutional and organisational matters

A. Contact points and National representatives

By the end of 2001, all Member States had appointed National representatives.

B. Preparatory meetings and National representatives meetings

Several preparatory and informal meetings to discuss different aspects of the initiative to establish the EUCPN were arranged by the (current, past or incoming) French, Swedish and Belgian Presidencies during autumn 2000 and spring 2001: Stockholm October 2000 (chaired by Sweden), Paris January 2001 (chaired by France), Brussels April 2001 (chaired by Belgium and Sweden) and Brussels May 2001 (chaired by Sweden). During the two latter of these meetings, under the Swedish chair, drafts of the Rules of Procedure and the first work programme were discussed and a recruitment procedure as well as a recruitment profile for the Head of the Secretariat were agreed on.

As the formal decision to establish the EUCPN was not taken until 28 May 2001, Member States did not have sufficient time to appoint all contact points before summer 2001. Due to this, the Swedish Presidency decided to arrange the first formal meeting for the National representatives only, to allow for them to take decisions on the three topics that were basic to facilitate the setting up of EUCPN.

The first meeting was then held, during the Swedish Presidency, at Rosenön, Stockholm, on 25-26 June 2001. During this meeting, the National representatives adopted the Rules of Procedure²and the work programme³. They also decided on the abbreviation for the European Crime Prevention Network, EUCPN, and agreed on which three of eight candidates for the post as Head of the Secretariat to recommend to the Commission. The role of the Secretariat was discussed, as was the cooperation with other crime prevention organisations.

2 Rules of Procedure for the European Crime Prevention Network of 25 June 2001. Approved by the National representatives at their first formal meeting, Stockholm 25 June 2001.

3 European Crime Prevention Network First programme. Setting priorities and objectives for the period July 2001-December 2002. Decided on by the National representatives of the EUCPN at

(10)

The National representatives met again during the Belgian Presidency on 11 September 2001 in Brussels to elaborate the functioning of the EUCPN. First drafts on the contents of the EUCPN web site, a format for printed reports, links to other crime prevention organisations and Member States crime prevention profiles were discussed. The possibility for the EUCPN to contribute to the implementation of the Council action plan on security at meetings of the European Council and other comparable events⁴ was discussed.

The third meeting of the National representatives took place on 11 October 2001 in Leuven, following the first plenary meeting of the EUCPN. A logo for EUCPN, provided by Portugal, was approved. Discussions on how to best implement the work programme and on the (absence of a) budget for EUCPN were held.

All Member States, with the exception of one, have sent representatives to attend the three meetings of the National representatives.

C. First Plenary meeting of the EUCPN

The Belgian Presidency arranged the first plenary meeting of EUCPN in Leuven, 9 and 10 October 2001. All Member States were represented, as well as nine applicant countries, the Commission, EUROPOL and the Council Secretariat. The European Monitoring Centre for Drugs and Drug Addiction had been invited. At that time not many contact points other than National representatives, had been appointed from the Member States.

A selection of the prioritised items according to the work programme were discussed in separate workshops. These workshops concerned the relation between the EUCPN and Applicant countries, urban crime, urban planning, local crime prevention, crime prevention research, crime proofing and the links between the EUCPN and other EU bodies.

The different workshops presented a number of outcomes⁵ that will constitute an additional basis for further work on these issues within the EUCPN.

4 Doc. 10916/01 JAI 82. Conclusions adopted by the Council and the representatives of the Governments of the Member States on July 13 2001 on security at meetings of the European Council and other comparable events.

5 See appendix 2 for the Belgian Presidency conclusions from the EUCPN plenary meeting.

(11)

D. Secretariat

The European Commission, who hosts the Secretariat, made provisional arrangements during spring 2001, within DG JAI Unit B1, so that one person (Mr. Michel Magnier) was able to act as part-time (10-20 %) Secretary of EUCPN. From 1 November, the Commission had the possibility to appoint one person as head of the Secretariat, provided this person was a seconded national expert.

For 2002 the Commission had made a request for a budget of €100 000 for the Secretariat to make it possible to enlarge the Secretariat. From 1 January 2002, the Commission had the intention to allocate one half A-position and one half C-position for the Secretariat, in addition to the head of the Secretariat. At the time of writing (March 2002), the Commission has not yet been able to allocate additional resources to the Secretariat. The webmaster of the DG JAI contributes to setting up the website of the Network.

Provisional national representatives (pending the Council decision) had discussed and agreed on a recruitment profile and the procedures of finding applicants for the post as Head of the Secretariat during meetings arranged by the Swedish Presidency during spring 2001. Eight persons applied for the post as Head of the Secretariat. At the first formal meeting of the National representatives, it was agreed that three of the candidates should be recommended to the Commission for the post, being the ones most suited according to the recruitment profile.

The Belgian Presidency then arranged a possibility for the National representatives to meet informally with the three candidates in person in July 2001, separately from the Commission official selection procedure. Finally, Mr Jaap De Waard from the Netherlands Ministry of Justice, was selected as EUCPN Secretary. Mr Jaap DE WAARD acts as EUCPN Secretary as from 1 November 2001.

E. Annual programme and annual report

The first work programme of EUCPN was discussed and elaborated on the above-mentioned informal meetings in April and May 2001, where representatives of all Member States took part, already before the Council decision to establish EUCPN. This made it possible to decide the first work programme at the first formal meeting of the National representatives in June 2001. The work programme, and the first steps to implement it, is presented in chapter 3.

(12)

F. EUCPN logo

To increase the visibility and the sense of identity of the EUCPN, the National representatives have decided on a EUCPN logo, created and provided by Portugal.

G. Financing

According to the Council Decision of 28 May 2001, only the EUCPN Secretariat and its activities shall be financed through the general budget of the European Union.

As the EUCPN is not a legal body, the budget for the Secretariat is handled by the legal body that provides the Secretariat – the Commission. For 2001 the Secretariat had no budget. For 2002 the Commission had made a request for a budget of €100 000 for the Secretariat to make it possible to enlarge the Secretariat. The question is still pending at the time of writing.

As only the costs for the activities of the Secretariat can be charged to the budget of the Union, costs for arranging meetings are borne by the Presidency, costs for travel and lodging for participants, whether National representatives or other contact points, are borne by the Member States directly. At the time of writing it is still unclear how large a budget there is for the Secretariat and its activities during 2002 and whether it will be possible to publish reports etc. funded by the Union budget.

V. 3 Objectives, scope and substance priority subjects of the EUCPN – Work programme and achievements during 2001

In elaborating the tasks and objectives of the EUCPN as set out by the Council decision, the National representatives have decided on a specified work programme⁶ for the first period, July

6 European Crime Prevention Network First programme. Setting priorities and objectives for the period July 2001-December 2002. Decided on by the National representatives of the EUCPN at their first meeting, Stockholm, 25 June 2001.

(13)

2001 – December 2002. The priorities of EUCPN, as set out in the work programme, are in line with those of the Hippokrates programme. It was noted in the work programme, that the number of activities and subjects that the Network would be able to cover during this first period would naturally depend on the effort that Member States put in and on the staffing of the Secretariat. On this basis, it is not expected that the Network will be able to cover all of the below-indicated top priority subjects during the first period.

The program sets out criteria for choosing tasks, those already in the work programme or other subjects that may arise. Objectives and tasks for EUCPN are selected on the following criteria:

 Benefit in the areas of juvenile, urban and drug-related crime;

 functions which will both start to deliver visible results quickly and help lay the ground for later work without pre-determining its long-term direction; and

 subjects that account for large volumes of crime, and where new ideas and techniques are being developed but on which we lack good evidence of the outcomes. In addition, work should concentrate on subjects where there is knowledge of what works and where something could be done at EU level to reduce crime.

Within this EUCPN first working program, the following actions have been set out:

A. Top priority functions

As soon as the Network has become operative, the following functions of the Network should be given highest priority:

 Establish the Network web site;

 Establish a format for producing printed reports;

 Establish the format for conferences for disseminating and exchanging best practices and discussing new ideas at EU level;

 Establish a system for collating and pooling quality assessed information on good practice in crime prevention;

 Establish a system for collating existing information on comparable statistics on crime and criminal justice;

 Identify gaps in research and the action needed to fill them, with particular attention paid to proposals for projects to be funded by the Hippokrates programme;

(14)

 Ensure that the Network has a sound ‘logic model’ of objectives, a conceptual framework;

 Establish methods for co-operation with EU bodies.

a)

B. Top priority subjects

Although covering all types of crime and criminality, the EUCPN pays particular attention to three main substance priority subjects, according to the Council decision and elaborated on in the work programme on the basis of the legacy: EU- seminars and conferences held since 1996.

 Juvenile crime

Juvenile violence and crime against young people are two topics of specific concern for Member States. In concentrating on these two areas of juvenile crime, the following subjects should be given priority as able to give benefit in preventing crime:

 Crime risk factors, i.e. alcohol, drugs, families with lesser social and economic resources and protective factors, i.e. education;

 Design and impact of behaviour modification programmes;

 Restorative justice practices, i.e. mediation;

 Partnerships police-social services to prevent juvenile crime.

 Urban crime

Burglary, car crime and street crime, including graffiti and vandalism are crime types that account for large volumes. They are also types of crime that greatly concern citizens of the Member States in that they are fairly frequent and affect the quality of living at local level. These types of crime should be given priority and the following measures should be regarded as prioritised in this respect:

 Conflict resolution / social mediation;

 Design standards for crime-proof cars, development of a car crime index at EU level;

 Designing out crime –the reduction of crime by urban planning and building design.

 Drug related crime

 Establish co-operation with the European Monitoring Centre on Drugs and Drug Addiction;

 Law enforcement measures that prevent drug related crime;

 Prevention through social and health policies.

(15)

 Horizontal issues

Next to the three prioritised subjects, the National representatives also identified some horizontal issues that should be covered by EUCPN. These five issues are briefly described below.

1) Comparable data on crime,

victimization, fear of crime and criminal justice

 International Crime Victims Survey (ICVS);

 Comparisons of crime and criminal justice statistics for EU Member States building on the work done within the Council of Europe;

 Further work on comparable data.

2) Crime proofing

 First step: information on volunteer experts from MS in a manual directory of excellence at the disposal of the Council. Comparisons of national checklists.

 Co-operate with Commission and Europol in finding methods for crime proofing and start using them.

3) Links between organised crime and

general crime

4) Fear of crime

 Best practices for reducing the feeling of insecurity or fear of crime – scientifically evaluated practices and new ideas.

5) Partnerships in preventing crime

 Local strategies, community policing and partnerships in crime prevention in the Member States (building i.a. on work done by the Council of Europe, Committee of Experts on Partnership in Crime Prevention, PC-PA);

 Cooperation between public and private sector.

C. Objectives or tasks set out to be achieved by December 2002

Furthermore, the work programme points out a number of concrete objectives and tasks that should be achieved by December 2002. These tasks are selected according to the criteria outlined above.

Among tasks that will give early visible results, the EUCPN aims to set up the EUCPN web site, establish operational links with other EU bodies and networks and other relevant organisations to

(16)

ensure cooperation and avoid duplication. A third task is to organise one conference for the exchange of best practices between practitioners in Member States, to be held at the end of 2002, with a report.

1. The setting up of the EUCPN website According to the work programme, the website shall include:

 General information on crime prevention in the EU,

 information on EUCPN, its contact points and the National representatives,

 links to other relevant EU bodies, international organisations, national crime prevention councils and selected other crime prevention websites with relevant information of high quality,

 a directory of crime prevention expertise in the Member States, starting with the national contact points,

 information on best practices in crime prevention, indicating whether they have been evaluated or not,

 information on scientifically evaluated crime prevention measures, and reports that have been printed.

The web site serves the following main purposes:

 ensure the visibility of the Network;

 improve understanding of what crime prevention is (that it works, and under what conditions).

By doing so the web site contributes to the transfer and transparency of essential crime prevention knowledge to other interested parties;

 raising prevention awareness of policy makers, business leaders, opinion leaders and the general public. By doing so it improves the performance and increases the scope of practice and policy in crime prevention across the EU, adding value to national efforts;

 assist MS’s to replicate and innovate proven crime prevention programmes and

 crime prevention measures;

 facilitate contacts and foster a supportive climate among experts and a range of other stakeholders.

(17)

Since June 2001, the Commission hosts a provisional website for EUCPN where the documents decided on during the Swedish Presidency can be found.

It is the intention of the National representatives that EUCPN shall have its own website, with an Internet address related to the EUCPN, already during 2002. It is expected that the test version of the website will be ready at the beginning of April 2002.

The Secretary is presently working, together with the Commission webmaster, on the construction of the website. A first proposal for the construction of the web site has been presented to the National representatives.

The EUCPN website is launched as a resource for all those interested in European crime prevention policies and practices. It is the ambition of the EUCPN to improve the performance and increase the scope of practice and policy in crime prevention across the European Union and applicant countries by adding value to national efforts.

By using the website it is possible to learn more about the different European crime prevention policies and practices. Although the site will be up and running in 2002, it will be a while before it is fully operational. Some parts of the site are still in the first stage or under construction. However, to ensure the visibility of the EUCPN it has been decided to offer the provisional website in 2002.

The site is split up in three main sections:

Background information

 About EUCPN. A profile of EUCPN: its history, structure, tasks and objectives

 EUCPN Contacts /Focal Points. A directory of crime prevention expertise in the Member States with the national contact points

 EU Member States Crime Profiles. From a variety of available statistics and sources profiles are presented

 Best Practices. An overview of effective crime prevention interventions and strategies at the EU-level

 Ongoing Projects / Programmes. An overview of initiated crime prevention projects at the EU- level

(18)

Updates & Notifications

 What’s new? Latest information on developments in the field of crime prevention

 Upcoming & Past Events. Meetings, conferences, reports and conclusions concerning crime prevention conferences

 European Crime Prevention Award. Rules and procedures, nominees, winners and reports

 Grants & Funding Service. Enhance co-operation among actors in the field of crime prevention.

Overview of funding possibilities External Websites

 In the EU Member States

 In the EU Applicant countries

 In the Non-EU member States

 Other Related Sites

2. The establishment of operational links with other EU bodies and networks and other relevant organisations

The cooperation with other bodies and network was discussed at one of the workshops during the first plenary meeting of EUCPN. The conclusions of the workshop stated that the EUCPN should in first instance co-operate with those bodies and institutions that can share relevant information, statistics and best practices on the priorities that have been defined by Council decision and the EUCPN work programme. During the workshop the discussions were concentrated on the description of the level and ways of co-operation with Europol and the EMCDDA.

During 2001, a first step has been taken to build cooperation with Europol and the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA). They are both, according to the Council Decision associated with the work of the EUCPN in matters with which they are concerned. It is obvious that both EU Bodies, within the framework of their competencies, already have extensive experience in crime prevention, exchange of information, setting up of web sites and the collection and analysis of information at EU-level. All parties involved can learn from each other.

(19)

It is expected that under the Spanish Presidency in the first half-year of 2002, the formal co- operation between the EUCPN, Europol and the EMCDDA respectively, will be established.

3. A conference for the exchange of best practices / good examples at the end of 2002

The planning of a conference for the exchange of best practices / good examples at the end of 2002 has already begun. It is intended that, during the Danish Presidency each Member States produces in written form one or more best practices / good examples on three main subjects (youth violence, domestic burglary / criminal damage, robbery). A report with these best practices / good examples will then be distributed before or during the conference. The content of the report will also be disseminated through the EUCPN website. This exercise will only be a success with the help from all National Representatives of the EUCPN.

Tasks that will help lay the groundwork for the future include the development of tools for comparison of crime and criminal justice within the EU.

By the end of 2002, it is intended that the EUCPN shall:

 Publish a report summarizing and analysing the results of the ICVS for the participating Member States,

 publish a first study summarizing and analysing crime and criminal justice statistics for the Member States,

 have begun to develop tools for building knowledge on crime prevention,

 have begun to develop an index of existing initiatives on crime prevention on the EU-level,

 have established a conceptual framework to prevent crime,

 have established a system to collect, pool and compare quality assured evidence of what works and what does not work in crime prevention,

 have established a basic set of crime proofing criteria.

4. The comparability of crime and criminal justice statistics.

The Belgian Presidency hosted an expert meeting in Brussels on 6-7 December 2001, with selected experts, to further elaborate the possibility of comparing crime and criminal justice

(20)

statistics between the Member States. The meeting was arranged at the initiative of the Home Office and the Belgian Ministry of Justice (Department of Criminal Policy)⁷. The results of this meeting are at the time of writing being examined by the National representatives and the question of possibly setting up a subgroup to further this issue shall be discussed by them during the Spanish Presidency.

In 2002, EUCPN aims to publish the report ‘The comparison of crime and criminal justice statistics in EU Member States’.

5. In developing new ideas and techniques, it is the aim that EUCPN during 2002 shall be able to:

Initiate a project comparing best practices on preventing violence in schools,

 publish a report on practices of social mediation in the Member States and continue with studying restorative justice practices,

 establish a directory of known juvenile crime risk factors and measures that have proved efficient to tackle them, and

 establish a directory of evaluated best practice in crime prevention.

In identifying areas where knowledge of what works could be used at EU level, the EUCPN has the ambition to:

 Publish a report summarizing the current knowledge on juvenile violence in the Member States,

 study the availability of data on car crime and possibly also publish a first study on car crime in the Member States,

 establish a directory of best practices to reduce the fear of crime, and

 search for ways to encourage the promotion of a European Standard on the reduction of crime by urban planning and building design.

6. Establishing a format for conferences for disseminating and exchanging best practices and discussing new ideas at EU level.

The Secretariat assists the incoming presidencies in organising conferences and providing information. In this way the Secretariat can play a stimulating role, contributing to the quality of the

7The document summarizing the outcomes of this meeting can be requested from the Secretariat of the EUCPN.

(21)

content and expertise. Conferences are important occasions to bring together key players in the field of crime prevention. The EUCPN plenary meetings that are held during each Presidency can offer insight into the state of the art on certain crime prevention topics. Concrete products of these conferences will be disseminated through the EUCPN web site. During 2001 the firsts steps have been taken to compile information from EUCPN organised conferences and meetings.

7. Establishing a system for collating and pooling quality assessed information on good practice in crime prevention.

This activity can be regarded as the ‘core’ of the EUCPN. The first steps to gather, describe and disseminate these practices have been taken. Some of these best practices have been identified by the Secretariat through extensive literature reviews and interviews with experts.

Ideally, these best practices are based on knowledge derived from rigorous evaluation of interventions reported in peer-reviewed literature.

8. Identifying gaps in research and the action needed to fill them.

Here particular attention is paid to proposals for projects to be funded by the Hippokrates programme. Research literature shows that there is good progress and accumulation of knowledge in the field of crime prevention. The EUCPN will disseminate this knowledge in a focused way.

However, due to ongoing developments, new types of crime emerge or are anticipated. The EUCPN will systematically identify gaps in our current knowledge base, anticipate on new developments in the market of crime and make suggestions to fill these aps. The Secretariat has produced a first draft of a document that systematically identifies some of these gaps. This work will be continued in 2002, as it has the character of work in progress.

9. Preventing violence at meetings of the European Council and other comparable events

In relation to the recommendations made in the JAI 82 document, “Conclusions adopted by the Council and the representatives of the Governments of the Member States on 13 July 2001 on security at meetings of the European Council and other comparable events”, a specific meeting dealing with this matter was arranged by the Belgian Presidency.

(22)

The recommendation in the JAI 82 document stated that the EUCPN should stimulate the exchange of best practices for developing constructive dialogues with organisers of demonstrations and to ensure that groups with a violent agenda do not exploit legitimate demonstrations.

This group met for the first time on 27 November 2001. Due to short preparatory time, only Belgium, Finland and the European Commission were represented at this meeting. The following are amongst the most important outcomes and ideas:

 The importance and the possibility of the contribution of the EUCPN in the exchange of best practices concerning the prevention of violence during large-scale events.

 The content of preventive measures and the possibility of a constructive dialogue during large- scale events. Here we should keep in mind that preventive actions should be interpreted broader than “a constructive dialogue” alone.

 Specific items, on which the subgroup could concentrate, should be identified (e.g. youth and riot culture, communication strategy towards mass events).

 The possible contribution and support of the Hippokrates program to this subgroup should be looked into.

 The necessity of common definitions on prevention and public order.

 In order to avoid duplication, there should be a certain level of information exchange with other organisations and institutions that handle this matter.

During the Spanish Presidency, the National representatives have decided on the setting up of an official subgroup of the EUCPN, dealing with best ways to prevent violence at high-level meetings.

10. Activities during 2001 not foreseen in the Work Programme 11. Bicycle theft

On 26 and 27 November 2001, Belgium arranged an expert meeting on bicycle theft. The aim of this meeting was to discuss the possibility of a uniform European bicycle registration system. Seven Member States were represented at this meeting (Austria, Belgium, Denmark, Finland, Germany, The Netherlands and the UK). All of the represented Member States stressed that bicycle theft can be considered as a problematic phenomenon in their respective countries. The problematic nature of bicycle theft is largely due to the high volume in which it occurs. In its conclusions, the experts made a number of recommendations regarding the setting up of a uniform European bicycle registration system. Amongst others, they pointed out that:

(23)

 Bicycle registration with a reference code is three-dimensional:

o It works as a preventive measure;

o It helps in recovering stolen bicycles; and

o It makes sure that the recovered bicycle is returned to its rightful owner.

 National registers of missing bicycles (presumably stolen) should be developed in all Member States.

The outcomes of this meeting are currently being examined by the National representatives, as Belgium has proposed to include the expert group on bicycle theft as an initiative of the EUCPN. - A report describing the proposal of a European uniform marking system for bicycles. This is an initiative supported by Austria, Denmark, Finland, Germany, the Netherlands, and the UK to address the in those countries very serious problem of bicycle theft (the estimated direct financial damage of bicycle theft in for example the Netherlands is estimated to be € 399 million per year).

(24)

VI. 4 Cooperation to prevent crime at EU level – perceived needs

The need to integrate and include crime prevention in an effective approach towards crime has been acknowledged over the last decade in many Member States. It has been experienced that the Member States have similar developments in crime trends and many similar problems in always striving to find effective measures. Through the exchange of knowledge and experiences on the causes of crime and on effective (and non-effective) crime prevention measures, Member States can profit at local, regional and national levels. Through exchanging experiences it can also become evident where there is a need for concerted action at Union level.

Several significant seminars and conferences on crime prevention during the 1990’s also called for the establishment of a EU-Network to develop co-operation on crime prevention. Most notably were those held in Zaragoza and Stockholm in 1996, in Noordwijk in 1997, in London in 1998, the high-level conference in Algarve in 2000, the seminar on juvenile justice in Paris 2000 and in Sundsvall in 2001. The outcomes of these conferences also confirmed the willingness of all the stakeholders involved to continue to develop and implement a European Crime Prevention Policy.

One of the main recommendations from these conferences concerned the need to develop exchanges of national know-how and experiences. This topic of the exchange of best practices has recurred regularly and been at the focus of co-operation against crime.

A. Crime prevention in the Member States

Typical for crime prevention, as it is practised in different EU-countries, is the great variety of organisations involved. In many MS the traditional core actors in crime prevention are Ministries of Justice and Ministries of Interior. This has changed. Besides these ministries, the police and the private security sector, new groups have entered the crime prevention market: municipalities, other ministries such as education, and social welfare, housing corporations, commerce and industry, and private persons. This in itself is a positive development: crime prevention is alive in European society.

It also has to be stated that crime prevention has many different meanings in the various Member States. The most well known major types of crime prevention practised in the Member States are:

Law enforcement, situational crime prevention, urban development and crime prevention, developmental-, and social or community crime prevention. Law enforcement refers largely to the

(25)

operations of the police, the courts, probation services, and the criminal justice system in general. The emphasis on crime prevention is reached through the deterrent provided by the prospect of both non- custodial and custodial sentences. Situational crime prevention reduces the likelihood of crime by removing the opportunities, and increasing risks for crime to be committed. Urban development in relation to crime prevention refers to the situation where central government, regions en municipalities have an agreement to contribute to the solution of urban social problems, including safety and security. Developmental prevention is aimed at interventions designed to prevent the development of criminal potential in individuals. Social or community crime prevention focuses on the social environment of potential and actual offenders. It attempts to remove their reasons for committing crime. It removes motivations for crime by addressing related social issues such as poverty, unemployment, housing, education, family breakdown, and social isolation.

The drawback of these developments is that the various Member States and parties often operate independently from each other. And this is exactly why the establishment of the EUCPN was proposed. It was felt that exchanging views and experiences in order to learn from each other is far out the best way to succeed in the effective implementation of crime prevention measures and strategies at the EU-level. Member States do not have to re-invent crime prevention policies and strategies. Many of the existing European crime prevention policies do have an export potential to other countries and regions. Therefore it became necessary to create an organisation that should draw the attention of those implementing prevention policies and schemes to existing sources of crime prevention policies and to the possibilities of making use of them.

(26)

VII. 5 Cooperation to prevent crime - legal basis for Union action and legacy A. The entering into force of the Treaty of Amsterdam

After the entering into force of the Treaty of Amsterdam, on 1 May 1999, the Treaty on European Union, Article 29 states that the objective of the Union in this area is to be achieved by preventing and combating crime, organised or otherwise.

B. The Vienna Action Plan

In deciding how to implement theTreaty of Amsterdam, Ministers of Justice and Home Affairs together with the Commission concluded⁸ that crime prevention measures should be taken within five years from the entering into force of the Treaty of Amsterdam, that is before May 2004.

C. Conclusions of the Tampere top summit

At the European Council special meeting in October 1999 in Tampere on the creation of an area of freedom, security and justice in the European Union, heads of state concluded amongst other that any efficient policy in the fight against all types of crime, organised or otherwise, must also include preventive measures of a multidisciplinary nature.

More specifically, conclusions 41 and 42, which specifically concern preventing crime at the level of the Union state:

“The European Council calls for the integration of crime prevention aspects into actions against crime as well as for the further development of national crime prevention programmes. Common priorities should be developed and identified in crime prevention in the external and internal policy of the Union and be taken into account when preparing new legislation.” (Art.41)

“The exchange of best practices should be developed, the network of competent national authorities for crime prevention and co-operation between national crime prevention organisations should be strengthened and the possibility of a Community funded programme should be explored for the purposes. The first priorities for this co-operation could be juvenile, urban and drug-related crime.” (Art.42)

8 OJ C 19, 23.1.99, p. 1. Action Plan of 3 December 1998 of the Council and the Commission on how best to implement the provisions of the Treaty of Amsterdam on an area of freedom, security and justice (The Vienna Action Plan).

(27)

D. The EU Crime Prevention Policy

At the JHA Council in March 2001, Ministers of Justice and Home affairs reached an agreement on a European crime prevention policy and its constituent elements⁹. It was agreed that the European crime prevention policy consists of:

 The European crime prevention network (pending examination of the European Parliament opinion);

 the proposal by the Commission for a financing programme Hippocrates and a Forum on organised crime;

 a future report by Europol and the Commission on organised crime and prevention; and

 conclusions from a Conference on prevention that was held in February 2001 in Sundsvall, Sweden¹⁰.

E. The Hippokrates programme

With the Council Decision of 28 June 2001 (2001/515/JHA) a programme of incentives and exchanges, training and co-operation for the prevention of crime was established. The programme is named after Hippokrates, the legendary founder of medicine whose motto was ‘prevention is better than cure’. The general objective of the Hippokrates Programme consists of providing citizens with a high level of security in an area of freedom, security and justice, in accordance with Article 29 of the Treaty of Amsterdam. Within this framework, the programme aims at encouraging co-operation between Member States in the field of crime prevention.

The following activities were funded in 2001: training, exchanges and work experience placements, studies and research, meetings and seminars, as well as dissemination of the results obtained within the framework of the programme. They concern general crime prevention as well as prevention of organised crime. Applicants will be public or private bodies in the Member States of the European Union involved in crime prevention. Private individuals may not submit projects to this programme.

Finally, in keeping with the aim of helping applicant countries to prepare for accession to the EU,

9 See Doc. 6757/01 (Presse 98-G) and 6245/1/01 CATS 4 CRIMORG 21 REV 1 Preparing a Council discussion on crime prevention – towards a European Crime Prevention Policy.

(28)

police or customs officers in these countries, or of other third countries can take part in projects, where this is in the interest of these projects.

The priorities of the Hippokrates programme are in line with those defined in Tampere: urban, juvenile, and drugs-related crime. In 2001, 62 project bids were received. Of these 23 were recommended and accepted for funding by the Hippokrates management Committee. The total amount of funding for crime prevention projects under Hippokrates 2001 is foreseen to be € 1.234.000. The programme will be valid for a period of two years (2001-02) This is in order to study the feasibility of merging the existing programmes (Grotius, Oisin and Stop) into a single programme governed by Title VI of the EU Treaty, into which Hippokrates will then be incorporated.

Although the Hippokrates program is open to all crime prevention actors, it would be desirable for the EUCPN to work to start functioning as an instrument for the exchange of best practices, which should then be reflected in concrete mutual projects. The EUCPN is in a position to bring potential project organisers together in priority areas of concern. By doing so, the EUCPN can generate quality projects.

F. The EU Forum on organised crime prevention

The EU Forum on organised crime prevention was launched on 17 and 18 May 2001. The new Forum is a European Commission initiative that is part of its broader strategy for crime prevention in the EU. This approach focuses on forming partnerships and networks with interested parties. In preventing organised crime, this means involving national law enforcement authorities, business and professional groups,, academic researchers, non-governmental organisations and civil society as a whole. In recent years, there has been a clear trend for international criminal organisations to infiltrate legitimate markets. The aim of the Forum is to raise awareness of the phenomenon among stakeholders and to mobilise them through new forms of partnerships. The Forum has selected four forms of organised crime in selected areas:

 Trafficking in human beings;

 Fraud related to non-cash means of payment;

 Trafficking in cultural goods;

 The role of the private sector in preventing economic and financial crime.

The EUCPN and the Forum both have expressed the need to promote co-operation for their mutual benefits, and to avoid duplication of work.

(29)

G. Resolution of 21 december 1998 on the prevention of organised crime

The High Level Group created by the European Council to establish and Action Plan to combat organised crime (OJ C 251, 15.08.1997) stated that prevention is no less important than repression in any integrated approach to organised crime. I line with the Action Plan, which contains a number of recommendations related to prevention, the Council adopted the Resolution ‘on the prevention of organised crime’ (Council Resolution of 21 December 1998, OJ 98/C 408/01). In it reference was made to the establishment of a comprehensive strategy to combat organised crime. The Resolution invited the Commission and Europol to prepare a comprehensive report. The main conclusions of the report are:

 The reduction of facilitating opportunities, asking for a detailed diagnosis at EU-level and evaluated measures at EU, national and local level. The strategy should be ‘knowledge-based’

and ‘problem-oriented’. A number of tools are suggested, including a data collection of organised crime indicators, good practices and a directory of excellence;

 To increase awareness and to commit all segments of society, based on partnership between the actions of prevention;

 To integrate crime prevention within the player’s own management, decision or product processes.

The future purpose of the report is to pave the way for the elaboration of a comprehensive European strategy on the prevention of organised crime.

H. The Millenium strategy

The European Union Strategy for the beginning of the new millennium on the prevention and control of organised crime ¹¹ calls in Recommendation 6 for the Council to be assisted by suitably qualified experts on crime prevention, such as for example establishing a network of experts from national crime prevention organisations.

(30)

VIII. 6 Concluding remarks

A. Summary of achievements during 2001

The year 2001 can be regarded as a milestone in the European Union Crime Prevention Policy.

After the necessary first period of consolidating the work methods and organisational structure, on 28 May 2001 the Council decided to establish the EUCPN. From this date till the end of 2001 the EUCPN has made a number of achievements. They can be summarised as follows:

 Already within a month after the Council decision the Network National representatives have decided on a specified work programme covering the period July 2001 – December 2002. At the same time the Network also decided on the Rules of Procedure. Finally, in July, a candidate for the post as Head of the Secretariat of the Network was selected.

 A first proposal for the construction of the EUCPN website has been produced;

 The first steps have been taken to build co-operation with the European Monitoring Centre for Drugs and Drug Addiction and Europol;

 The planning of a conference for the exchange of best practices at the end of 2002 has already begun;

 An expert meeting has been held to further elaborate the possibility of comparing crime and criminal justice statistics between the Member States;

 A specific meeting was held on security at meetings of the European Council and other comparable events (JAI 82 document) with the aim to stimulate the exchange of best practices on this topic;

 The format for establishing conferences for disseminating and exchanging best practices and discussing new ideas at EU level on crime prevention has been defined;

 The first steps of the establishment of a system for collating and pooling quality assessed information on good practices in crime prevention;

 The first steps have been taken to identify gaps in crime prevention research and the action needed to fill them.

B. Problems encountered in the process

Because the EUCPN has no budget on its own, means that the Member States must pay the mandatory activities of the EUCPN, such as holding plenary meetings, meetings of National Representatives, but also non-mandatory activities like publishing, disseminating, translating studies or holding experts’ meetings. So far, the previous Presidencies have invested this money.

(31)

The future activities of the EUCPN partly depend on the financial means at its disposal. When the future of the EUCPN is to be assured, it needs to look deeper into a structural way of financing.

C. Prospects for the future

Through the years, crime prevention has grown to become a key aspect in the approach of the crime problem. Today, many countries regard crime prevention as a fully integrated part of the struggle against crime and the way to deal with its causes. At last it has been understood that, next to repression, crime prevention is a crucial element of an effective approach to crime. As emphasised by the Tampere conclusions, this interest for crime prevention has not only been brought about at national level, but also at a European level. As is described in this annual report, several initiatives, projects and proposals have proven this. The main aim of the EUCPN is to contribute to developing the various aspects of crime prevention at European Union level and to support crime prevention activities at local and national level. As many European crime prevention policies are comparatively new, the exchange of information, views on and ideas is of particular importance. In the context of EU crime prevention policies, it is extremely valuable to look beyond the respective Member States borders to learn how other countries manage to prevent crime. The exchange of evidence and knowledge-based information in this field is essential.

This is exactly the role the EUCPN wants to play. The EUCPN is only at the beginning of its existence, officially since 28 May 2001. After a period of discussion and initiatives to set up the EUCPN, it is expected by the Member States and its many partners that this initiative will concretely develop in the years to come. The exchange of information between the Member States is seen as an essential element in the continued development of preventive EU action against crime.

Policymakers and practitioners may better understand their ‘own’ national crime problems better by putting these in an international perspective. The active role of the EUCPN will hopefully add to their understanding.

Experiences during recent years have taught us that crime prevention can be very effective. There has been an accumulation of knowledge on ‘what works’, what is promising and what does not work. However, the bottleneck is often how to put this knowledge into practice. All kinds of existing and available best practices are often not used in policies and practices. Proven effectiveness obviously offers no guarantee for acceptance, especially when it runs counter to well-

(32)

established customs. The main objective of the EUCPN is to make an utmost effort to stimulate, facilitate and promote the use of the current crime prevention knowledge base available in the EU.

By the end of the year 2002 the EUCPN aims to have established the following priorities:

 Establish the EUCPN web site;

 Establish a format for producing printed reports;

 Establish a format for conferences for disseminating and exchanging best practices and discussing new ideas at EU level and organise one conference at the end of 2002, with a report;

 Establish a system to collect, pool and compare proper quality assessed information on good practices in crime prevention;

 Establish a directory of known juvenile risk factors

 Initiate a project comparing best practices on preventing violence in schools;

 Publish a report on practices of social mediation in the Member States;

 Publish a report summarising the current knowledge on juvenile violence in the Member States;

 Establish a directory of best practices to reduce the fear of crime;

 Establish a system for collating existing information on comparable statistics on crime and criminal justice, and publish a report on the comparison of crime and criminal justice statistics in the EU Member States;

 Identify gaps in research and the action needed to fill them, with particular attention paid to proposals for projects to be funded by the Hippokrates programme;

 Ensure that the EUCPN has a sound ‘logical model’ of objectives, a conceptual framework;

 Establish methods of co-operation with EU-bodies.

This is an ambitious objective. But as with the multiple causes of crime, there are also multiple parties involved in the prevention of crime. With the help of many of these parties, the Network can make an effective contribution to developing the various aspects of crime prevention at EU level. It should be clear that the number of activities during this period will for the most part depend on the input and efforts of the Member States and the staffing of the Secretariat.

Collecting, analysing and disseminating high-quality information in a targeted way can be an effective instrument. The present time and communication infrastructure seems right to reach this goal. The exchange of information in the field of crime prevention will hopefully add to our ability to improve the effectiveness of components of the various criminal justice systems, the dissemination of crime preventive measures, and thereby to the success of our ability to control crime.

(33)

By promoting crime prevention at the Union level, individuals, families, businesses and communities could avoid much suffering and losses caused by crime. Therefore crime prevention can be regarded as a tool to assure that the people of Europe can really live in an area of freedom, security and justice.

(34)

D. Annex 1: Chronological overview of official documents published in 2001 in relation to the EUCPN

Note: All documents are available in all official languages of the Union.

14 February 2001

Council document 6234/01 CATS 3 CRIMORG 20 from Presidency to Article 36 Committee.

Presidency Crime Prevention Conference.

23 February 2001

Council document 6245/1/01 CATS 4 CRIMORG 21 REV 1 from Article 36 Committee to Coreper/Council. Preparing a Council discussion on crime prevention – towards a European Crime Prevention Policy.

23 February 2001

Council document 6563/01 CATS 6 CRIMORG 22 from Presidency to Delegations. Conclusions of the Conference “Towards a knowledge-based strategy to prevent crime” held in Sundsvall, Sweden, 21-23 February 2001.

28 May 2001

Council Decision of 28 May 2001 setting up a European crime prevention network. OJ CL 153, 8.6.2001, p. 1.

25 June 2001

European Crime Prevention Network first programme: setting priorities and objectives for the period July 2001 – December 2002

25 June 2001

Rules of procedure for the European Crime Prevention Network 25-26 June 2001

(35)

Web site information on the European Crime Prevention Network first meeting, Stockholm, Sweden, 25 – 26 June 2001. Please note: Available in English only.

28 June 2001

Council Decision of 28 June 2001 establishing a programme of incentives and exchanges, training and co-operation for the prevention of crime (Hippokrates). OJ L 186, 7.7.2001, p. 11.

30 June 2001

Hippokrates bi-annual work programme for 2001 - 2002

13 July 2001 10916/01 JAI 82 Outcome of proceedings of Council (Justice and Home Affairs).

Conclusions adopted by the Council and the representatives of the Governments of the Member States on 13 July 2001 on security at meetings of the European Council and other comparable events.

13 July 2001

8055/2/01 ENFOPOL 35 CRIMORG 46 REV 2 from Former Swedish Presidency and the German and Finnish delegations to Police Cooperation Working Party. Crime prevention – Further action to co-ordinate separate initiatives with the aim to avoid duplication of work.

5 December 2001

Council document 14920/01 JAI 163 from Presidency to Council. Presidency conclusions of first plenary meeting of the European Crime Prevention Network (EUCPN), Leuven, Belgium, 9-10 October 2001.

---

The majority of the above mentioned documents can be found in English and in French on the temporary Internet address (pending the setting up of the EUCPN website):

http://europa.eu.int/comm/justice_home/news/cpnet/en

or on http://europa.eu.int/comm/justice_home/news/cpnet/fr for English and French text respectively. Documents in other official languages are available from the EUCPN Secretariat.

(36)

Records of the meetings of the National representatives are available (in English) at the Commission, the EUCPN Secretariat. However, records of the meetings are restricted documents.

(37)

E. Annex 2: Presidency conclusions from EUCPN meeting in Leuven

COUNCIL OF

THE EUROPEAN UNION Brussels, 5 December 2001

14920/01 LIMITE JAI 163

NOTE

From : Presidency

To : Council

Subject : Presidency conclusions of first plenary meeting of the European Crime Prevention Network (EUCPN), Leuven, Belgium, 9 - 10 October 2001

Delegations will find attached the conclusions of the above mentioned meeting.

________________________

Presidency Conclusions of the First Plenary Meeting of the European Crime Prevention Network

Leuven, Belgium, 9 – 10 0ctober 2001

INTRODUCTION

Through the years, crime prevention has grown to become a key aspect in the approach of the crime problem. Today, many countries regard crime prevention as a fully integrated part of the struggle against crime and the way to deal with its causes. At last it has been understood that, next to repression, crime

(38)

prevention is a crucial element of an effective approach to crime. As emphasised by the Tampere conclusions, this interest for crime prevention has not only been brought about at national level, but also at a European level. Several initiatives, projects and proposals have proven this, not in the least the establishment of the European Crime Prevention Network (EUCPN). The EUCPN was officially established by the Council decision of 28 May 2001. As stated in the Council decision of 28 May 2001, the aim of the EUCPN is to contribute to developing the various aspects of crime prevention at Union level and to support crime prevention activities at local and national level.

Following the efforts of the previous presidencies, the Belgian Presidency has prioritised the further development of the possibilities to enhance crime prevention through the elaboration of the tasks and functions of the EUCPN. In this context, the Belgian Presidency had the honour to host the first plenary meeting of the EUCPN. To this meeting, the national representatives and their substitutes, other EUCPN contact points, the European Commission, the General Secretariat of the Council of the European Union, EUROPOL, the EMCDDA and a representative of each applicant country were invited.

The aim of the meeting was to discuss and elaborate the previously approved working program of the EUCPN, in order to make the EUCPN a true operational and positive instrument in the prevention of crime.

FIRST PLENARY MEETING OF THE EUCPN

The first plenary meeting of the EUCPN commenced with introductions by the Chair of the EUCPN, the EUCPN Secretary and the future EUCPN Secretary. Through these introductions, the importance of crime prevention and the first plenary meeting of the EUCPN was stressed. Secondly, the working program, the organisation and the secretariat of the EUCPN were discussed. Finally, crime trends in the EU and the influence of crime prevention were addressed, as well as the concept of crime prevention, the implementation of best practices into practice and the current status and possible future perspectives of the EUCPN.

Next to the general presentations made in the plenary sessions, the participants were invited to elaborate certain concepts in one of the following workshops:

 The relation between the EUCPN and the Applicant countries.

 Urban crime.

 Local crime prevention.

 Urban planning.

 Crime prevention research.

European Crime Prevention Network

European Crime Prevention Network

EUCPN

First Annual Report:

2001

Contents