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Promoting Prosecutorial Accountability, Independence and Effectiveness

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This book represents a comparative research of the prosecution institution in nine diff erent OPEN SOCIETY INSTITUTE countries. The main objective of the compara- SOFIA tive analysis is to identify the international stan- dards and best practices in terms of account- Solunska str. 56 ability, eff ectiveness and independence of the Sofia 1000 prosecution services. The study should guide Tel.: (+359 2) 930 66 19 and enrich national debates in countries where PROMOTINGPROMOTING Fax: (+359 2) 951 63 48 the prosecution needs to be reformed. In the last twenty years there have been sig- PROSECUTORIALPROSECUTORIAL www.osi.bg nifi cant changes in criminal procedure and in public prosecution in many parts of the world. ACCOUNTABILITY,ACCOUNTABILITY, The reports included in the volume aim, in part, to examine some important instances and ex- INDEPENDENCEINDEPENDENCE ANDAND amples of that trend. The country reports repre- sent a broad range of practices and approaches EFFECTIVENESSEFFECTIVENESS about the manner of organization of the pros- ecution service. The focus of the research is on Comparative Research the lessons learned from the reform in demo- cratic states and the challenges for the coun- tries in transition in designing the prosecution institution. The comparative research shows that there is JUSTICE not a universal model of prosecutorial indepen- dence and accountability. Hence, the reformers and decision makers have on their disposition a large variety of approaches to choose from on the occasion of a concrete reform. However, they should have in mind an important fi nd- JUSTICE ing of the comparative analysis, namely—im- porting an apparently successful element of a reform should not necessarily produce the ex- PROMOTING PROSECUTORIAL ACCOUNTABILITY, ACCOUNTABILITY, PROSECUTORIAL PROMOTING INDEPENDENCE AND EFFECTIVENESS pected positive results. 2008 PROMOTING PROSECUTORIAL ACCOUNTABILITY, INDEPENDENCE AND EFFECTIVENESS Comparative Research 2008 The views expressed in this book represent the opinions of the authors themselves and not these of Open Society Institute, Sofia and Open Society Justice Initiative, New York. The authors should be cited on the occasion of each republishing of the material, the whole or a part of it. © 2008, Open Society Institute Sofia ISBN 978-954-9828-55-9 PROMOTING PROSECUTORIAL ACCOUNTABILITY, INDEPENDENCE AND EFFECTIVENESS Comparative Research Project team Yonko Grozev project manager, Open Society Institute Sofia Martin Schönteich project manager, Open Society Justice Initiative Rada Smedovska project coordinator, Open Society Institute Sofia Anton Girginov Supreme Cassation Prosecution Office Anton du Plessis Institute for Security Studies, South Africa Barry Hancock International Association of Prosecutors Belinda Cooper World Policy Institute, New York Cristián Riego Center for Justice Studies, Chile Daniela Cavallini Center for Judicial Studies, University of Bologna, Italy Ekaterina Trendafilova International Criminal Court Endre Bócz Public Prosecution Service, Hungary François Falletti Eurojust Giuseppe Di Federico Research Institute on Judicial Systems of the Italian National Research Council Heike Gramckow Justice Reform Practice Group of The World Bank, Washington, DC James Lackner U.S. Attorney’s Office, District of Minnesota Joachim Herrmann University of Augsburg, Germany Károly Bárd Central European University, Budapest Mirna Goransky Attorney General Office, Argentina Robert M. A. Johnson County Attorney, Anoka, USA Todd Foglesong Kennedy School of Government at Harvard University Werner Róth prosecutor, Germany Contents Acknowledgements | 13 Foreword | 15 Overview: Design and Reform of Public Prosecution Services | 19 Timothy Waters A. Introduction | 21 I. Purpose of the Project | 21 II. Project Structure and Methodology | 23 B. Findings: Policy and Practice in the Design of Prosecution Services | 24 I. General Issues | 24 1.1. Independence, neutrality, and accountability | 25 1.2. Effectiveness and efficiency |9 2 1.3. Measuring performance | 31 1.4. International standards | 32 II. Structure and Organization of the Public Prosecution Service | 35 2.1. Internal structure | 36 2.2. Budgetary process | 39 2.3. The status of the prosecutor general | 42 2.4. The status of individual prosecutors | 4 2.5. Individual accountability of prosecutors | 48 2.6. Training | 51 III. Functions and Powers of Prosecutors | 52 3.1. Prosecutorial functions in criminal justice | 53 3.2. Relationship with the judge at the pre-trial stage | 58 3.3. Powers outside the criminal justice system | 59 IV. Relationship of the Public Prosecution Service to Other Organs of the State | 61 4.1. The constitutional location of the public prosecution service | 16 4.2. Relations with the legislature | 63 4.3. Relations with the executive | 65 4.4. Relations with the police and other investigative organs | 68 4.5. Relations with the judiciary | 70 V. Information Control concerning the Prosecution Service’s Activity | 73 VI. The Use of Statistics | 7 Report on the Bulgarian Prosecution Service Yonko Grozev I. General Issues | 83 II. Structure and Organization of the Prosecution Service | 85 2.1. Internal structure | 85 2.2. Budgeting process | 87 2.3. The status of the prosecutor general | 98 2.4. The status of individual prosecutors | 91 2.5. Individual accountability of prosecutors | 93 2.6. Training | 96 III. Functions and Powers of Prosecutors | 96 3.1. Prosecutorial functions in criminal justice | 96 3.2. Relationship with the judge at the pre-trial stage | 99 3.3. Powers outside the criminal justice system | 100 IV. Relationship of the Prosecution Service to Other Organs of the State | 100 4.1. The constitutional location of the prosecution service | 100 4.2. Relationship with the legislature | 102 4.3. Relationship with the executive | 103 4.4. Relationship with the police | 106 4.5. Relationship with the judiciary | 110 V. Publicizing the Prosecution Service’s Activities | 112 Report on the Ministerio Público and the Reform of Prosecution in Chile Todd Foglesong I. General Issues | 115 The Reasons and Rationales for Reform in Chile | 116 II. Structure and Organization of the Prosecution Service | 119 2.1. Internal structure | 119 2.2. Budgetary process | 119 2.3. The status of the Prosecutor General and senior Regional Prosecutors | 120 2.4. The status of individual prosecutors | 121 2.5. Individual accountability of prosecutors | 122 2.6. Training | 123 III. Functions and Powers of Prosecutors | 124 3.1. Prosecutorial functions in criminal justice | 124 3.2. Relationship with the judge at the pre-trial stage | 127 3.3. Powers outside the criminal justice system | 128 IV. Relationship of the Prosecution Service to Other Organs of the State | 128 4.1. The constitutional location of the prosecution service | 128 4.2. Relationship with the legislature | 129 4.3. Relationship with the executive | 131 4.4. Relationship with the police | 132 4.5. Relationship with the judiciary | 133 V. Publicizing the Prosecution Service’s Activities | 134 VI. Statistics and Appendices | 136 Crime, Victimization, and Public Safety | 136 Report on the Crown Prosecution Service of England and Wales Anton Girginov, Barry Hancock I. General Issues | 143 II. Structure and Organization of the Crown Prosecution Service | 145 2.1. Internal structure | 145 2.2. Budgetary process | 147 2.3. The status of the prosecutor general | 148 2.4. The status of individual prosecutors | 149 2.5. Individual accountability of prosecutors | 150 2.6. Training | 151 III. Functions and Powers of Prosecutors | 152 3.1. Prosecutorial functions in criminal justice | 152 3.2. Relationship with the judge at the pre-trial stage | 156 3.3. Powers outside the criminal justice system | 156 IV. Relationship of the public prosecution service to other organs of the state | 157 4.1. The constitutional location of the Crown Prosecution Service | 157 4.2. Relations with the legislature | 158 4.3. Relations with the executive | 158 4.4. elations with the police | 159 4.5. Relations with the judiciary | 162 V. Publicizing the Prosecution Service’s Activity | 163 VI. Statistics | 163 Bibliography | 164 Annex A | 165 Report on the Prosecution Service in France | 175 Rada Smedovska, François Falletti I. General Issues | 177 II. Structure and Organization of the Prosecution Service | 178 2.1. Internal structure | 178 2.2. Budgetary process | 181 2.3. The status of the Prosecutor General | 182 2.4. The status of individual prosecutors | 182 2.5. Individual accountability of prosecutors | 186 2.6. Training | 189 III. Functions and Powers of Prosecutors | 190 3.1. Prosecutorial functions in criminal justice | 190 3.2. Relationship with the judge at the pre-trial stage | 193 3.3. Powers outside the criminal justice system | 193 IV. Relationship of the Prosecution Office to Other Organs of the State | 519 4.1. The constitutional location of the prosecution service | 195 4.2. Relations with the legislature | 196 4.3. Relations with the executive | 197 4.4. Relations with the police and with investigative organs other than the police | 201 4.5. Relations with the judiciary | 204 V. Information Control | 205 VI. Statistics | 207 VII. Bibliography | 208 Report on the Public Prosecution Service in Germany Ekaterina Trendafilova, Werner Róth I. General Issues | 213 II. Structure and Organization of the Public Prosecution Service | 216 2.1. Internal structure | 216 2.2. Budgetary process | 218 2.3. The status of the Prosecutor General | 219 2.4. The status of individual prosecutors
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