F O U R Adoption: 22 March 2013 Public T Publication: 27 March 2013 Greco Eval IV Rep (2012) 6E H E FOURTH EVALUATION ROUND V A Corruption prevention in respect of members of L parliament, judges and prosecutors U A T I O EVALUATION REPORT N FINLAND R O Adopted by GRECO at its 59th Plenary Meeting U (Strasbourg, 18-22 March 2013) N D TABLE OF CONTENTS I. INTRODUCTION AND METHODOLOGY ..................................................................................................... 5 II. CONTEXT .................................................................................................................................................. 7 III. CORRUPTION PREVENTION IN RESPECT OF MEMBERS OF PARLIAMENT .................................................. 9 OVERVIEW OF THE PARLIAMENTARY SYSTEM ................................................................................................................. 9 TRANSPARENCY OF THE LEGISLATIVE PROCESS ............................................................................................................. 10 REMUNERATION AND ECONOMIC BENEFITS ................................................................................................................. 11 ETHICAL PRINCIPLES AND RULES OF CONDUCT .............................................................................................................. 12 CONFLICTS OF INTEREST .......................................................................................................................................... 13 PROHIBITION OR RESTRICTION OF CERTAIN ACTIVITIES ................................................................................................... 14 Gifts ............................................................................................................................................................. 14 Incompatibilities and accessory activities, post-employment restrictions ................................................... 15 Financial interests, contracts with State authorities, misuse of public resources, third party contacts ...... 16 Misuse of confidential information ............................................................................................................. 16 DECLARATION OF ASSETS, INCOME, LIABILITIES AND INTERESTS ....................................................................................... 17 SUPERVISION AND ENFORCEMENT ............................................................................................................................. 18 Rules on the use of public funds .................................................................................................................. 18 Rules on conflicts of interest and disclosure of outside ties......................................................................... 19 ADVICE, TRAINING AND AWARENESS ......................................................................................................................... 20 PARLIAMENT OF ÅLAND .......................................................................................................................................... 21 IV. CORRUPTION PREVENTION IN RESPECT OF JUDGES ............................................................................... 22 OVERVIEW OF THE JUDICIAL SYSTEM .......................................................................................................................... 22 General Courts ............................................................................................................................................. 23 Administrative Courts .................................................................................................................................. 23 Special Courts .............................................................................................................................................. 24 RECRUITMENT, CAREER AND CONDITIONS OF SERVICE ................................................................................................... 25 CASE MANAGEMENT AND PROCEDURE ....................................................................................................................... 28 ETHICAL PRINCIPLES, RULES OF CONDUCT AND CONFLICTS OF INTEREST ............................................................................. 30 PROHIBITION OR RESTRICTION OF CERTAIN ACTIVITIES ................................................................................................... 31 Incompatibilities and accessory activities, post-employment restrictions ................................................... 31 Recusal and routine withdrawal .................................................................................................................. 33 Gifts ............................................................................................................................................................. 34 Third party contacts, confidential information ............................................................................................ 34 Declaration of assets, income, liabilities and interests ................................................................................ 34 SUPERVISION AND ENFORCEMENT ............................................................................................................................. 35 ADVICE, TRAINING AND AWARENESS ......................................................................................................................... 38 V. CORRUPTION PREVENTION IN RESPECT OF PROSECUTORS .................................................................... 40 OVERVIEW OF THE PROSECUTION SERVICE .................................................................................................................. 40 RECRUITMENT, CAREER AND CONDITIONS OF SERVICE ................................................................................................... 41 CASE MANAGEMENT AND PROCEDURE ....................................................................................................................... 42 ETHICAL PRINCIPLES, RULES OF CONDUCT AND CONFLICTS OF INTEREST ............................................................................. 43 PROHIBITION OR RESTRICTION OF CERTAIN ACTIVITIES ................................................................................................... 44 Incompatibilities and accessory activities, post-employment restrictions ................................................... 44 Recusal and routine withdrawal .................................................................................................................. 45 Gifts ............................................................................................................................................................. 46 Third party contacts, confidential information ............................................................................................ 46 DECLARATION OF ASSETS, INCOME, LIABILITIES AND INTERESTS ....................................................................................... 46 SUPERVISION AND ENFORCEMENT ............................................................................................................................. 47 ADVICE, TRAINING AND AWARENESS ......................................................................................................................... 48 VI. RECOMMENDATIONS AND FOLLOW-UP ................................................................................................. 50 3 EXECUTIVE SUMMARY 1. In Finland, corruption prevention concerning members of parliament, judges and prosecutors relies to a large degree on trust, openness and public scrutiny and appears to be quite effective in practice. According to international indices, in Finland the perception of corruption in general and with respect to the above categories of persons in particular is clearly below the average of EU countries. Domestic actors suggest to further increase transparency and awareness in certain areas rather than to introduce a regime built on mandatory declarations, restrictions and enforcement. While GRECO takes account of this context, it nevertheless wishes to stress that the risks of corruption resulting from conflicts of interest must not be underestimated. The present report includes recommendations – as well as several further suggestions – aimed at raising awareness among members of parliament, judges and prosecutors about such risks, further increasing transparency and ultimately fostering public trust in them and the institutions they represent. 2. GRECO identified areas regarding corruption prevention among members of parliament which leave room for improvement. In particular, it is recommended to establish a Code of Conduct, clarify the concept of conflict of interest in the meaning of article 32 of the Constitution as well as the mechanism for its implementation, further elaborate the rules applicable to the acceptance of gifts and other advantages, make the disclosure of outside ties by members of parliament mandatory and widen its scope and ensure enforcement of the existing and yet-to-be established rules. Such measures should be seen as safeguards to ensure that the parliamentary process is free from – and also seen to be free from – improper external influence. 3. Turning to judges and prosecutors, the dissemination of the recently adopted Ethical Principles for Judges – in particular to lay judges and expert members