Riksrevisionens rapport om Kriminalvårdens behandlingsverksamhet

Regeringens skrivelse 2024/25:29

Riksrevisionens rapport om Kriminalvårdens behandlingsverksamhet

Regeringen överlämnar denna skrivelse till riksdagen.

Stockholm den 31 oktober 2024

Ulf Kristersson

Gunnar Strömmer

(Justitiedepartementet)

Skrivelsens huvudsakliga innehåll

I skrivelsen redogör regeringen för sin bedömning av de slutsatser och rekommendationer som Riksrevisionen lämnar i rapporten Verktyg för förändring – Kriminalvårdens behandlingsverksamhet (RiR 2024:13).

Riksrevisionens övergripande slutsats är att Kriminalvårdens behandlingsprogram inte fullt ut bedrivs på ett effektivt sätt. Enligt Riksrevisionen är den huvudsakliga förklaringen att verksamheten är underdimensionerad på grund av att det saknas både personal som kan bedriva verksamheten samt lokaler att bedriva dem i.

Regeringen instämmer i huvudsak i Riksrevisionens iakttagelser. Det är viktigt att Kriminalvården prioriterar behandlingsverksamheten samt verkställighetsplaneringen för dömda med medelhög och hög risk för återfall i brott. Kriminalvårdens intensiva arbete för att möta det ökade platsbehovet innebär dock att myndigheten måste göra prioriteringar.

I och med denna skrivelse anser regeringen att Riksrevisionens rapport är slutbehandlad.

1¶Ärendet och dess beredning

Riksrevisionen har undersökt om Kriminalvården bedriver sin behandlingsverksamhet på ett effektivt sätt. Riksrevisionen har även granskat om Kriminalvården har styrt och organiserat behandlingsverksamheten så att alla klienter som bedöms ha behov av det kan erbjudas behandlingsprogram. Vidare har Riksrevisionen undersökt om Kriminalvården säkerställer att behandlingsprogrammen är evidensbaserade och att utveckling och utvärdering av dem får genomslag i verksamheten. Riksrevisionen redovisar slutsatser och rekommendationer som avser Kriminalvården. Resultatet av granskningen redovisas i rapporten Verktyg för förändring – Kriminalvårdens behandlingsverksamhet (2024:13), se bilagan.

Riksrevisionens rapport överlämnades av riksdagen till regeringen den 11 juni 2024. Inom ramen för framtagandet av denna skrivelse har synpunkter inhämtats från Kriminalvården.

2¶Riksrevisionens iakttagelser

2.1¶Riksrevisionens slutsatser

Riksrevisionens slutsats är att Kriminalvårdens behandlingsverksamhet inte fullt ut bedrivs på ett effektivt sätt. Riksrevisionen anser att den huvudsakliga förklaringen är att verksamheten är underdimensionerad på grund av att det saknas både personal som kan bedriva verksamheten och lokaler att bedriva dem i.

Kriminalvårdens ambition är att så många som möjligt av de klienter som bedöms ha medelhög eller hög risk för återfall i brott går minst ett behandlingsprogram under sin verkställighet. År 2023 fullföljde dock endast 22 procent av klienterna i anstalt respektive 13 procent av klienterna i frivård med behov av behandling ett behandlingsprogram.

Enligt Riksrevisionen är det tillgången på personal och programlokaler som sätter taket för hur stor andel av klienterna Kriminalvården kan nå med behandlingsverksamhet.

Kriminalvården styr behandlingsverksamheten från nationell nivå genom tilldelning av öronmärkta medel. Riksrevisionen anser att resurstillsättningen inte är dimensionerad för att kunna nå alla klienter med behov av behandlingsprogram. Riksrevisionen ser därför att Kriminalvården behöver fortsätta arbetet med att utöka behandlingsverksamheten. Kriminalvården behöver också utöka möjligheterna att delta på distans.

Riksrevisionens sammantagna bedömning är att Kriminalvården har en organisation för att främja utveckling och utvärdering av myndighetens behandlingsprogram. Flera avdelningar, enheter och sektioner bidrar gemensamt till utveckling och utvärdering av behandlingsprogram och närliggande frågor. Riksrevisionen bedömer dock att ett bättre samarbete internt inom Kriminalvården på sikt skulle kunna leda till en kunskapshöjning i hela myndigheten.

2.2¶Riksrevisionens rekommendationer

Riksrevisionen lämnar följande rekommendationer till Kriminalvården. • Prioritera behandlingsverksamheten genom ändamålsenlig resurs-

sättning så att tillräckligt med programledare och programlokaler i

förhållande till målsättning kan tillhandahållas. • Prioritera arbetet med verkställighetsplanering och säkerställ att det

finns uppföljning av i vilken utsträckning behov möts av adekvata

insatser för att kunna vidareutveckla arbetet med verkställighets-

planeringen. • Säkerställ att en stödjande miljö och ett kompetent klientnära arbetssätt

genomsyrar hela organisationen för att få full effekt av behandlings-

programmen och det återfallsförebyggande arbetet. • Utveckla möjligheterna att genomföra program på distans för att

undvika avbrott när klienter flyttar och för att göra det möjligt att i

högre utsträckning än idag möta klienters individuella behov. • Undersök regelbundet klientpopulationens behov och utforma utbudet

av behandlingsprogram utifrån vad som då framkommer. • Genomför effektutvärderingar av behandlingsprogram för att säker-

ställa att de behandlingsprogram som erbjuds ger effekt.

Riksrevisionen lämnar inga rekommendationer till regeringen.

3¶Regeringens bedömning av Riksrevisionens iakttagelser

3.1¶Antalet återfall i brott ska minska

Regeringen instämmer i huvudsak i Riksrevisionens iakttagelser. Kriminalvårdens viktigaste uppdrag är att verkställa straff och förebygga att de dömda återfaller i brott. En åtgärd för att minska risken för återfall är att erbjuda behandling till de dömda som bedöms ha behov av det. Riksrevisionens rapport utgör ett värdefullt underlag för regeringens fortsatta arbete med att återupprätta tryggheten i Sverige. Regeringen delar Riksrevisionens övergripande slutsats om att behandlingsverksamheten inte fullt ut bedrivs på ett effektivt sätt. Trots att en rad åtgärder vidtagits under senare år ligger återfallen i brottslighet fortfarande på en hög nivå.

Av de personer som lagförts för brott under 2021 återföll nästan en av fyra i brott inom ett år. Över tid har dock andelen återfall minskat nästan varje år fram till 2018 när en tillfällig uppgång syns. Därefter har återfall i brott legat på en stabil nivå utan stora förändringar. För både kvinnor och män var andelen som återföll i brott två procentenheter lägre 2021 jämfört med 2012. När det gäller de som hade fängelse som mest ingripande påföljd återföll betydligt fler, 41 procent, i brott inom ett år. Detta är dock en minskning med fem procentenheter jämfört med samma kategori 2012. Lägst andel återfall i brott bland fängelsedömda återfanns hos de som avtjänat fyra år eller mer där 19 procent av samtliga återföll i brott inom

ett år. Högst andel återfall i brott fanns i de kategorier som avtjänar korta fängelsestraff på upp till sex månader. Samtidigt minskade återfallen i brott mest mellan 2012 och 2021 i kategorierna som avtjänat mellan fyra (-11 procentenheter) och sex månaders (-12 procentenheter) fängelse, medan återfallen bara minskade med en procentenhet i gruppen som avtjänat mindre än två månaders fängelse (Brottsförebyggande rådet 2024). Trots en liten minskning av återfall i brott mellan 2012 och 2021 bekräftar statistiken bilden av att återfall i brott även framöver innebär en stor utmaning för samhället.

Som Riksrevisionen påpekar har en stor andel av kriminalvårdsklienterna dömts till korta fängelsestraff. Under 2022 dömdes 42 procent av de som dömdes till fängelse till en strafftid på högst två månader och 19 procent till en strafftid på mellan två och sex månader. Som statistiken visar återfaller de som dömts till korta fängelsestraff i högre utsträckning i brott än de som dömts till längre fängelsestraff. Trygghetsberedningens betänkande Vägar till ett tryggare samhälle (SOU 2024:54) lämnar förslag på området. Dock är resurserna inom Kriminalvården ansträngda och myndigheten måste därför göra prioriteringar och sätta in insatser där det bedöms att möjligheten att nå framgång är som störst.

Regeringen har inlett en omfattande översyn av centrala delar av straffrätten, bland annat innebärandes att straffen ska skärpas för att återspegla brottens allvar. Detta leder till att fler kommer att sitta i fängelse. Dessutom blir fängelsestraffens längd längre vilket innebär att Kriminalvården kommer att ha längre tid till sitt förfogande för att se till att de fängelsedömda genomgår insatser som minskar risken för återfall i brott.

Regeringen delar Riksrevisionens bedömning att Kriminalvården behöver genomföra mer heltäckande klientkartläggningar för att på så vis identifiera hur behandlingsprogrammen kan anpassas till de dömda i Kriminalvården. Regeringen har därför sett till att Kriminalvården sedan den 1 januari 2024 har möjlighet att bedriva forskning av betydelse för verksamheten.

3.2¶Kriminalvårdens fortsatta arbete

Även Kriminalvården delar Riksrevisionens bedömning att fler dömda behöver nås av behandlingsprogram. Myndigheten har bland annat stora utmaningar med att tillhandahålla ändamålsenliga lokaler för programverksamhet. Detta är, enligt Kriminalvården, en effekt av den snabba expansionen, där de flesta anstalter nu bedriver verksamhet för dubbelt så många klienter som lokalerna är anpassade för. I de om- och nybyggnationer som planeras och som nu pågår finns utökning av lokaler för programverksamhet alltid med som ett krav.

Kriminalvården strävar mot att i högre grad, och på ett effektivare sätt, kunna möta de behov som framgår av de dömdas verkställighetsplanering. Kriminalvårdens granskningar visar att alltför få dömda får den insats som bedöms lämplig. Det kan till exempel handla om att den dömde inte fått någon insats alls, eller endast en del av de insatsbehov som bedöms nödvändiga eller att behandlingen inte har varit tillräckligt omfattande. Det

pågår arbete på olika nivåer i myndigheten för att i större utsträckning minska risken för återfall i brott. Arbetet med att nå fler dömda med lämpliga insatser är prioriterat. Parallellt pågår också ett arbete för att förenkla och förbättra behandlingsverksamhetens digitala systemstöd.

För Kriminalvården är den stödjande miljön också en viktig komponent i det dynamiska säkerhetsarbetet. Ett väl fungerande arbetssätt är mycket angeläget, inte minst i tider av hög beläggning. Myndigheten har därför tagit fram en plan för att utveckla den stödjande miljön.

Kriminalvården arbetar aktivt med att utöka de digitala möjligheterna för att de dömdas individuella behov ska kunna tillgodoses bättre. Inom frivården gjordes under pandemin ett försök med att bedriva program via länk. Upplevelsen var positiv för både dömda och programledare. När det gäller myndighetens senaste behandlingsprogram, Krimfokus, har möjligheterna till fortsatt programdeltagande vid förflyttningar hanterats. Ett hinder för distansprogramsessioner är bristande tillgång på ändamålsenliga lokaler för den dömde under behandlingsprogrammet. Genomförandet kräver omfattande säkerhetssystem och rutiner som idag endast återfinns på ett fåtal verksamhetsställen.

Kriminalvården har på grund av juridiska hinder, såsom rättsligt stöd för behandling av personuppgifter, tidigare inte kunnat göra heltäckande klientkartläggningar eller genomföra effektutvärderingar av behandlingsprogrammen. Från den 1 januari 2024 har Kriminalvården emellertid en ny instruktion där det framgår att myndigheten får bedriva forskning av betydelse för verksamheten. Kriminalvården ser nu ökade möjligheter att på önskat sätt kunna undersöka klientpopulationens behov för att vidare utveckla behandlingsprogrammen. Kriminalvården har även bättre möjligheter att genomföra effektutvärderingar av behandlingsprogrammen.

4¶Regeringens åtgärder med anledning av Riksrevisionens iakttagelser

Regeringens ambition är att återfall i brott ska minska. Det är viktigt att Kriminalvården prioriterar behandlingsverksamheten samt verkställighetsplaneringen för dömda med medelhög och hög risk för återfall i brott. Kriminalvårdens intensiva arbete för att möta det ökade platsbehovet innebär dock att myndigheten måste göra prioriteringar.

Kriminalvården expanderar kraftigt och fler döms till påföljder inom myndigheten. Regeringen har av den anledningen tillfört myndigheten betydande ekonomiska medel de senaste åren. Regeringen följer noggrant Kriminalvårdens arbete på området, bland annat utifrån Riksrevisionens iakttagelser och rekommendationer. Trygghetsberedningens betänkande Vägar till ett tryggare samhälle - Åtgärder för att motverka återfall i brott (SOU 2024:54) har lämnat förslag för att minska återfall i brott. Betänkandet har remitterats och kommer att beredas i Regeringskansliet efter remisstidens utgång.

Regeringen anser att Riksrevisionens rapport är slutbehandlad genom denna skrivelse.

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Justitiedepartementet

Utdrag ur protokoll vid regeringssammanträde den 31 oktober 2024 Närvarande: statsminister Kristersson, ordförande, och statsråden Busch, Svantesson, Ankarberg Johansson, Edholm, J Pehrson, Waltersson Grönvall, Jonson, Strömmer, M Persson, Wykman, Liljestrand, Bohlin, Dousa Föredragande: statsrådet Strömmer

Regeringen beslutar skrivelse Riksrevisionens rapport om Kriminalvårdens behandlingsverksamhet