Concept for the Development of the Penal Enforcement System of the Russian Federation until 2020

31.01.2010

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Concept for the Development of the Penal Enforcement System of the Russian Federation until 2020. Draft

DRAFT
Concept for the Development of the Penal Enforcement System of the Russian Federation until 2020

CONTENTS:

1. General characteristics and current state of the penal enforcement system.............3
2. General provisions of the Concept. Its purpose and tasks..........................7
3. Main directions of the development of the penal enforcement system
3.1. Change in criminal-judicial and penal enforcement policy………...8
3.2. Reforming the system of institutions executing sentences in the form of deprivation of liberty, and improving the organisational and structural design of the penal enforcement system......................11
3.3. Improving the efficiency of management in the penal enforcement system, the use of innovative developments and scientific potential………………..16
3.4. Ensuring international standards of treatment for convicts in places of deprivation of liberty and persons held in custody
3.4.1. In the sphere of regime and security.....................19
3.4.2. In the sphere of material and living conditions of convicts..................20
3.4.3. In the sphere of medical services..........21
3.4.4. In the sphere of labour activity and professional training of convicts……….........22
3.4.5. In the sphere of social, psychological and educational work with convicts, obtaining education..........................25
3.5. Attracting the public to social assistance and educational work with convicts, improving cooperation with civil society institutions. Creating conditions for exercising public control over the activities of the penal enforcement system....................................28
3.6. Staffing and social status of the personnel of the penal enforcement system......................................29
4. Execution of sentences not involving deprivation of liberty, and post-penitentiary adaptation
4.1. Development of alternatives to deprivation of liberty.........31
4.2. Ensuring post-penitentiary adaptation of convicts, prevention of
recidivism...................................32
4.2.1. Strengthening the interaction of the penal enforcement system with executive authorities and local self-government bodies to ensure employment...............33
4.2.2 Measures to increase the efficiency of control over the behaviour of the dangerous special contingent being released (administrative supervision, operational-search activity)………...34
5. Expected results of the implementation of the Concept..............................34
6. Stages of implementation of the Concept............................35

1. General characteristics and current state of the penal
enforcement system.

The Penal Enforcement System (hereinafter referred to as the PES) is an element of the country’s law enforcement system and represents an integral collection of institutions and bodies performing functions related to the execution of criminal sentences and other criminal-legal measures imposed by courts, as well as judicial decisions on the application of criminal-procedural preventive measures in the form of custody, guarding and escorting convicts and persons suspected and accused of committing crimes.
As of 1 August 2009, 884,200 people were held in PES institutions providing isolation from society, including:
138,400 people held in 225 pre-trial detention centres and 164 premises functioning in the regime of pre-trial detention centres within colonies;
745,800 people serving sentences in 755 correctional colonies; 4,300 people serving sentences in 7 prisons;
7,500 people in 62 educational colonies for minors.
There were 48,600 women in these institutions; there are 16 infant homes attached to women’s colonies, where 820 children were residing.
There were 558,300 people registered in 2,440 penal enforcement inspectorates who were convicted under suspended sentences or serving sentences not involving isolation from society.
To carry out the tasks of escorting convicts and persons held in custody, special escort units have been created (32 directorates and 39 departments), which transport more than 2 million people annually.
Medical services for convicts and those under investigation are provided by 131 hospitals of various profiles, as well as medical units or health posts in each institution, 59 medical correctional institutions for tuberculosis patients, and 9 institutions for drug addicts.
The industrial complex of the PES includes 313 federal state unitary enterprises, 496 centres for the labour adaptation of convicts, and 37 medical and 40 vocational training workshops.
Attached to correctional and educational colonies are 309 evening general education schools and 482 educational-consultation centres, 339 vocational schools, and 510 places of worship and 734 prayer rooms are in operation.
The authorised strength of PES personnel is 359,700 people, including 259,700 certified employees.
Medical services for personnel are provided by 47 healthcare institutions, including 25 centres for medical and social rehabilitation, 13 hospitals, 6 military-medical commissions, and 3 sanatoriums.

The PES includes 8 higher professional education institutions with 7 branches, including the Academy of Law and Management, 74 training centres and units, an advanced training institute, the Research Institute of the Penal Enforcement System, and the Research Institute of Information and Production Technologies with 3 branches.
There is a Unified Editorial Office publishing the magazines “Crime and Punishment”, “Bulletin of the Penal Enforcement System”, and the newspaper “Kazenny Dom”.
Management of the institutions executing sentences is carried out by the territorial bodies of the PES in the constituent entities of the Russian Federation and the federal body for PES management – the Federal Penitentiary Service (FPS of Russia), which is under the jurisdiction of the Ministry of Justice of the Russian Federation.
Over the past ten years, the volume of budgetary funds allocated annually to the PES has increased almost 15-fold. In combination with other measures, this has allowed for certain positive shifts in the development of the PES, bringing its activities into compliance with international standards, and increasing its transparency and accountability to civil society institutions.
Nutrition, clothing, and medical supply standards have been improved. Legislation and the practice of sentencing and selecting preventive measures in the form of custody are being improved. New types of sentences alternative to deprivation of liberty have been introduced.
At the same time, after a significant decrease in 2000–2005, the number of convicts serving sentences in correctional colonies increased by 132,800 people, or 22%, over the subsequent three years, and this growth occurred against the background of a decreasing crime rate in the country. With a slight decrease in the number of persons held in custody, the total number of arrestees remains consistently high, and in some regions, their number significantly exceeds the available capacity in pre-trial detention centres. Due to objective reasons, the pace of construction and reconstruction of correctional institutions and pre-trial detention centres cannot keep up with the dynamics of the growth of the special contingent, which results in significant overcrowding in a number of these institutions, exceeding established limits by 20–40%. In turn, the overcrowding of institutions leads to a general deterioration of detention conditions, violations of the rights and legitimate interests of convicts and persons held in custody as provided by law, increases the burden on personnel, and creates conflict situations.
To a certain extent, the overcrowding of pre-trial detention centres is caused by the excessively harsh and not always justified practice of investigative and judicial bodies when selecting preventive measures in the form of arrest. According to the FPS of Russia, every year on average more than 70,000 suspects and accused persons are released from custody due to a change in the preventive measure to one not involving isolation from society or due to being sentenced to a penalty not involving deprivation of liberty. There are about 100,000 people in places of deprivation of liberty who were convicted for the first time for committing minor offences and who could have been reformed without isolation from society.
Along with this, the situation in the PES is negatively affected by a number of other social factors, the influence of which is gradually increasing.
Within a few years, with the overall growth in the number of convicts in institutions, the number of those convicted of grave and particularly grave crimes has doubled and has reached two-thirds of the total number of people sentenced to deprivation of liberty. More than a quarter of the convicts have been sentenced to long terms of deprivation of liberty, and almost half of the convicts are serving sentences for the second time or more. There are more than 400,000 people in places of deprivation of liberty who are prone to various forms of destructive behaviour. More than 800,000 people, or 90% of those convicted and held in pre-trial detention centres, are registered at dispensaries for various diseases, about 300,000 are ill with socially significant diseases, including 77,700 patients with mental disorders, 43,100 with active tuberculosis, 47,900 with HIV infection, 53,600 with drug addiction, 27,600 with alcoholism, and 33,800 with viral hepatitis. More than 37.6% of convicts are disabled, incapacitated, or have limited working capacity. More than 80% of convicts did not have professional or labour skills upon arrival, or had lost them. About 50,000 convicts were in need of obtaining compulsory basic general education upon arrival.
As a historical legacy, the modern PES has inherited a peculiar way of prison life for the accused and convicted. The activity of criminal leaders trying to propagate so-called “thieves’ traditions” persists. The propagation of criminal culture and the cohesion of the criminally oriented special contingent is facilitated by the clearly outdated system of collective accommodation of convicts.
In connection with the above, the burden on the personnel of the penal enforcement system has increased significantly, and cases of threats and attacks on them related to their official activities have become more frequent.
The problem of countering criminal structures requires the resolution of a whole complex of issues related to the organisation of proper interaction between law enforcement agencies to neutralise external and internal factors that create a threat to the normal functioning of penal enforcement units—that is, threats “from within the institution”, originating from the leaders of convict groups with a negative orientation, and threats “from the outside”, from criminal “authorities” who are at liberty.
At the same time, overcoming the threat of the cohesion of the criminally oriented special contingent and actions that disorganise the activities of PES institutions, as well as ensuring external order and discipline in places of deprivation of liberty, are being maintained under the conditions of collective accommodation of convicts through outdated, and sometimes excessively cruel actions by the institution’s staff, which significantly exceed their official powers and possess a high level of latency.

Service in the PES is not considered prestigious among the population. The salary of PES workers in large cities and industrially developed regions of Russia is significantly behind the average income of the population in these regions. The discrepancy between monetary allowances and the volume, complexity, and nature of the work is the main motive for staff resignations. There is an increase in the number of vacant positions; for this reason, more than a third of the junior command staff positions, who are on duty guarding those sentenced to deprivation of liberty, are filled by women. In large industrial centres, some positions are forced to be filled by staff from other cities working on a rotational basis.
The low social status of staff provokes many of them to engage in episodic or systematic participation in the illegal trade of not only permitted but also prohibited items in pre-trial detention centres and places of deprivation of liberty, including alcoholic beverages, narcotic substances, mobile communication devices, etc. The practice of approval by the PES institution administration of parole, benefits, and sanctions in relation to the special contingent needs analysis and evaluation. Illegal and unfair actions, and the venality of individual employees have nothing in common with the state policy in the sphere of re-educating criminals and exclude its effectiveness.
In the law enforcement system, the PES occupies a special place, executing adopted court decisions on the execution of the criminal-procedural preventive measure in the form of custody and the execution of sentences. Therefore, the effectiveness of its activities largely depends on the quality of the work of other law enforcement agencies.
Due to a number of reasons, the system of individual prevention of crime recidivism, which existed during the Soviet era in the Ministry of Internal Affairs, turned out to be destroyed in Russia, and the so-called “probation” services or similar organisations that exist in many countries have not yet been created here. As a result, no special pre-trial study of the offender’s personality is conducted for the purpose of developing recommendations for the court regarding the selection of a criminal-procedural preventive measure or a punishment measure for this person. Consequently, errors often occur that lead to excessive repression.
On the part of state structures responsible for ensuring law and order in the country, proper control and supervision of the behaviour of persons released from places of deprivation of liberty on parole and after serving their sentences are not exercised. There is no system for providing assistance to persons released from places of deprivation of liberty, although in a number of regions, certain work is being carried out with them.
Meanwhile, more than 260,000 people are released from correctional institutions annually. The lack of systematic preventive work with them in society creates a threat of turning PES institutions into a kind of “prison university”, providing only temporary isolation of criminals from society, but at the same time contributing to the socio-psychological

degradation and stigmatisation of their personality, and the spread of criminal subculture in society.
Thus, the solution to some issues affecting the effectiveness of the execution of sentences goes beyond the scope of PES activities and requires * separate consideration.
At present, despite certain positive results in the fight against crime, its overall level remains relatively high. In the conditions of the global financial and economic crisis, the specific gravity of a number of mercenary and mercenary-violent crimes, as well as crimes committed by migrants and some other categories of persons, remains significant.
Therefore, a reform of criminal and penal enforcement policy is necessary in order to ensure a stable, optimal number of contingent of persons held in correctional institutions and pre-trial detention centres, and long-term planning of measures to improve the situation and further develop the PES. These circumstances necessitated the preparation of this Concept.

2. General provisions of the Concept. Its purpose and tasks.

The Concept for the Development of the PES of the Russian Federation represents the collection of views, guiding principles, and provisions adopted by the Ministry of Justice of the Russian Federation and the Federal Penitentiary Service regarding the main directions, forms, and methods of improving and developing the PES, its interrelationships with state bodies and civil society institutions, and the legal, scientific-technical, resource, and organisational support for its functioning for the period until 2020.
The main purpose of the Concept is to increase the efficiency of the work of institutions and bodies executing sentences to the level of international standards of treatment of convicts and the needs of social development.
To achieve this goal, it is necessary to solve the following tasks:
improving criminal-judicial and penal enforcement policy in terms of the rational application of procedural coercion measures and the combination of punishment with measures for the socialisation of the convict;
changing the structure of the PES, creating new types of institutions implementing the execution of sentences in the form of deprivation of liberty, and abandoning the detachment form of accommodating convicts;
implementing strict separation or separate accommodation of convicts in accordance with their criminological characteristics;
developing principles of educational, educational, and labour activity in new conditions;
improving the management of PES bodies and institutions, taking into account their new structure;

ensuring the necessary level of social protection and personnel activity;
attracting the capabilities of the federal budget and extra-budgetary funds within the framework of public-private partnership on a voluntary basis when financing the Concept’s measures;
strengthening the material base of pre-trial detention centres, correctional institutions, and penal enforcement inspectorates (hereinafter referred to as PEI);
creating favourable opportunities for public participation in solving the tasks facing the PES;
increasing the efficiency of holding suspects and accused persons in custody, and developing alternative measures of criminal-procedural coercion;
modernising and optimising the system for guarding correctional institutions and pre-trial detention centres;
changing the ideology and focus of the application of the main means of correcting convicts in places of deprivation of liberty towards a more in-depth socialisation of the personality and preparation for release;
expanding the scope of application of sentences and other measures not involving deprivation of liberty;
developing scientific foundations and introducing the achievements of scientific and technological progress into the practice of executing sentences;
ensuring transparency in PES activities and its accountability to civil society institutions;
developing international cooperation with the penitentiary systems of foreign countries, international bodies, and non-governmental organisations.
The Concept was prepared in accordance with the decision of the Presidium of the State Council of the Russian Federation dated 11.02.2009 (Vologda), taking into account the decisions of the operational meeting of the Security Council of the Russian Federation dated 25.11.2008, the Presidential Address to the Federal Assembly of the Russian Federation, the Concept of Long-Term Socio-Economic Development of the Russian Federation for the period until 2020, the Federal Targeted Programme “Development of the Penal Enforcement System (2007–2016)”, and the Action Plan for the implementation of the instructions of the President of the Russian Federation and the Government of the Russian Federation dated 30.10.2008 (No. Pr.-2333 dated 07.11.2008, No. SS-P4-6666) on improving criminal-judicial policy and the practice of executing sentences in the form of deprivation of liberty.

3. Main directions of development of the PES.

3.1 Changing the criminal-judicial and penal enforcement policy

Revision of the main directions of the state’s policy in the sphere of combating crime, taking into account the need to preserve a morally stable social and demographic structure of society in Russia, and to conserve the individual, their reproductive and social function:
- declaring the priorities of the inevitability (and not necessarily the cruelty) of punishment for violations of the law, ensuring conditions for the guilty to compensate for damage to victims and the state, the variability of sentences imposed by the court, and encouraging convicts to re-socialise as quickly as possible;
- revision of the current criminal legislation with the decriminalisation or provision of administrative prejudice for a number of criminal delicts (this measure does not exclude the tightening of criminal repression for other categories of crimes and cannot be considered as a liberalisation of criminal law);
- shifting the focus in the state’s punitive policy in a justified volume to tightened administrative punishments (including arrest for a term of up to 2 months, mandatory labour, significant fines) and criminal punishments not involving long-term isolation from society;
- improving the system of executing administrative punishments, including the creation of a mechanism for tightening administrative punishment (up to its replacement by a criminal one) in the event that the guilty party evades voluntary performance of the duties imposed by the court;
- changing the current legislation on the selection of a preventive measure in the form of arrest and the practice of its application by investigative bodies and courts towards tightening the criteria for selecting this preventive measure;
- changing the practice of pre-trial criminal prosecution with the separation of categories of the most dangerous and complex crimes to prove, the investigation of which, including the decision on the selection of a preventive measure, is coordinated by a prosecutor-state prosecutor, and less dangerous and simple crimes to prove, the investigation of which is conducted in a simplified manner within short timeframes, for which a preventive measure in the form of arrest is applied in exceptional cases;
- creating, in addition to the existing system of pre-trial detention centres for holding those arrested during investigation, a system of special detention centres with lower requirements for isolation and regime for short-term holding during the pre-trial investigation period of persons prosecuted for minor crimes, but who do not have a permanent place of residence and lead an asocial lifestyle.
Further humanisation of criminal policy, weakening of criminal repression against persons who have committed crimes. Introducing amendments to the Criminal Code of the Russian Federation (hereinafter referred to as the CC) regarding:
decriminalisation of a number of crimes of minor and medium gravity that are not directed against the life and health of a person;
changing the general principles of sentencing;
lowering the maximum term of punishment in the form of deprivation of liberty for the concurrence of crimes and the concurrence of sentences;

excluding the measure of punishment in the form of deprivation of liberty for acts of minor and medium gravity not directed against life and health;
forming a practice of imposing sentences in the form of deprivation of liberty with serving the sentence in prisons of general, enhanced, and special regimes; re-evaluating the approach formed in the theory and practice of criminal law and procedure to detention in prison conditions as a regime for serving a sentence in the form of deprivation of liberty that is incomparably more severe compared to detention in correctional labour colonies;
lowering the minimum and maximum limits of sanctions in the Special Part of the CC;
reviewing the qualifying features of crimes in the Special Part of the CC;
expanding the grounds for applying punishment in the form of deprivation of liberty with serving in a settlement colony;
supplementing the grounds for applying punishment in the form of corrective labour;
introducing new types of sentences alternative to deprivation of liberty;
introducing the institute of administrative prejudice of criminal liability.
Strengthening administrative-legal influence on persons committing socially dangerous acts. Introducing amendments to the administrative legislation of the Russian Federation regarding:
inclusion in the Code of Administrative Offences of the Russian Federation of acts excluded from the CC in connection with their decriminalisation;
increasing the term of administrative arrest up to 2 months for delicts excluded from the CC in connection with their decriminalisation;
strengthening liability for evasion of serving administrative punishments.
Reducing the application of the preventive measure in the form of custody, introducing additional supervisory-administrative guarantees of the validity and legality of selecting this preventive measure. Introducing amendments to the Criminal-Procedural Code of the Russian Federation regarding:
consolidating the institute of coordination with the prosecutor’s office of petitions from preliminary investigation bodies on the selection of a preventive measure in the form of custody;
expanding the scope of application of preventive measures not involving deprivation of liberty (personal surety, bail, house arrest, etc.), which can be applied to a suspect or accused of committing crimes;
changing the legislative regulation of extending the term of detention in custody;
limiting the application of detention in custody and reducing the terms of detention in custody in relation to suspects and accused of committing crimes of minor and medium gravity, as well as reducing the terms for considering criminal cases by courts;

applying electronic control devices at the place of residence of the suspect, accused of committing crimes as an alternative to custody;
introducing the practice of selecting preventive measures and imposing sentences in relation to minors based on juvenile technologies.
Implementation of the law on mandatory genomic registration of convicts for grave and particularly grave crimes.
Searching for new forms and methods of correctional influence on convicts. Consolidating social and psychological work with convicts in the penal enforcement legislation as the main means of correcting convicts. Experimental testing of organisational mechanisms of social work with convicts.
Supplementing the system of incentives with other stimuli for law-abiding behaviour of convicts and active re-socialisation.
Further differentiation of the accommodation of convicts depending on the nature and degree of social danger of the crimes they committed, the type of crime recidivism, and their behaviour while serving the sentence (separate accommodation of those convicted for the first time and those who have committed recidivist crimes, expansion of grounds for sending to a settlement colony, on the one hand, and transfer to a prison regime and strict conditions for serving the sentence, on the other).
Experimental testing and legislative consolidation of new forms of supervision over the behaviour of convicts using electronic monitoring of global navigation systems GLONASS and GPS.

3.2 Reforming the system of institutions executing sentences in the form of deprivation of liberty, and improving the organisational and structural design of the PES

Changing the regimes for accommodating convicts in places of deprivation of liberty with the de facto cessation of the existence of the “correctional labour camp” system, which exploits the idea of “re-education by the collective”, assumes constant regeneration of criminal culture, preservation of a breeding ground for recidivist crime, constant presence of a significant part of convicts in an extremely stressful state, and justifies the use by the administration of correctional institutions of outdated disciplinary and educational practices, which are associated with official abuses and are inadequate in their cruelty;
Introducing into practice the separate accommodation, by court decision, of those sentenced to deprivation of liberty who are capable of re-socialisation, taking into account the gravity and social danger of the crimes they committed, information about their personality, behaviour in places of deprivation of liberty, and attitude towards the crime committed, and those who have committed particularly grave crimes and have firmly mastered and are spreading criminal culture (in relation to the latter, it is advisable to restore the status of dangerous and particularly dangerous recidivist, assigned not automatically but by court decision, including for malicious and systematic violations of the order of accommodation in places of deprivation of liberty).
Replacing the existing system of correctional institutions with two main types of institutions—prisons and settlement colonies, while maintaining medical-correctional and medical-preventive institutions and pre-trial detention centres for performing special tasks. Transforming colonies for minors into educational homes for juvenile offenders.
It is advisable to create the following types of correctional institutions. In the system of the Ministry of Internal Affairs of Russia—arrest houses for holding those sentenced to administrative arrest for a term of up to 2 months. In the system of the FPS of Russia:
a) pre-trial detention centres—for holding persons in relation to whom a preventive measure in the form of custody has been selected by the court, until the court verdict enters into legal force, and persons sentenced to deprivation of liberty as household maintenance workers;
b) settlement colonies—for holding persons who have committed crimes through negligence and have not previously served sentences for grave and particularly grave crimes against the person, against public security, armed robbery, crimes against the sexual inviolability and sexual freedom of the individual, as well as those sentenced to deprivation of liberty for the first time for committing crimes of minor and medium gravity or those given suspended sentences but who did not comply with the prescribed conditions and, in connection with this, were sent to places of deprivation of liberty, and those transferred from other places of isolation from society, with compulsory involvement in labour. Conditions for serving sentences in them are determined by Article 129 of the Penal Enforcement Code of the Russian Federation.
c) settlement colonies with enhanced supervision—for persons sentenced to deprivation of liberty for negligent crimes but who have previously served sentences for committing grave crimes and crimes against the person, for persons who have committed crimes of minor and medium gravity and have previously been sentenced to punishments not involving deprivation of liberty, as well as for persons transferred from settlement colonies and from prisons as a sanction or incentive, respectively.
By court decision, taking into account the nature of the crime and data on the convict’s personality, persons sentenced for the first time for grave crimes in the sphere of economic activity, crimes against the interests of service in commercial and other organisations, crimes in the sphere of computer information, crimes against state power, interests of state service, and service in local self-government bodies may be sent to these institutions if they are recognised by the court as persons not posing a danger to the life and health of citizens.
Convicts in settlement colonies with enhanced supervision are held without guards, but under the supervision of the settlement colony administration. They live in dormitories specially intended for them. Leaving the territory of the settlement colony without the administration’s permission is prohibited.
A settlement colony with enhanced supervision is equipped with a solid fence at least 2.0 m high with an anti-escape top made of reinforced barbed tape (AKL) coil. A checkpoint with a passage corridor equipped with two doors is arranged at the fence line. Video surveillance systems, control devices, screening, and other technical means of supervision are used on the territory of the settlement colony. Dormitories and disciplinary isolation cells are equipped with video surveillance.
d) general regime prisons—for holding persons sentenced to deprivation of liberty for the first time for grave and particularly grave crimes, for those convicted of crimes of minor and medium gravity who have previously been sentenced to deprivation of liberty for crimes of minor and medium gravity, as well as for those who have committed crimes of minor and medium gravity in settlement colonies, or transferred there from settlement colonies or from enhanced regime prisons as a sanction or incentive, respectively.
All newly arrived convicts are held under strict conditions. Convicts under strict conditions are accommodated in four-person cells; they are allowed 2 short-term and 2 long-term visits per year, 2 parcels or packages, 2 deliveries, and they also have the right to purchase basic necessities and food in the shop in the amount of no more than 1,000 roubles per month; telephone conversations are provided in exceptional circumstances, they are permitted to engage in sports in sports cells for no more than one hour a day, they can study in a general education school and vocational school through distance learning, are not taken out to work, have the right to watch information television programmes for no more than 1.5 hours a day, including recordings of speeches by the prison management, and have the right to watch 2 feature films per week;
Convicts who have not allowed violations of the accommodation rules during their time under strict conditions and have served at least 1/4 of the total sentence term under strict conditions are transferred to normal accommodation conditions. They are held in cells for six; they are allowed 3 short-term and 3 long-term visits per year, 4 parcels or packages, 4 deliveries, and they also have the right to purchase basic necessities and food in the shop in the amount of no more than 1,500 roubles per month, have the right to 3 telephone calls per year, as well as to engage in sports in the gym and stadium for up to 2 hours daily, are taken out to work, can study in a general education school and vocational school through full-time education, have the right to watch information television programmes for no more than 2 hours a day, and have the right to watch 4 feature films per week.
In the future, convicts who have not allowed violations of the accommodation rules can be transferred to lenient conditions. Convicts under lenient conditions are allowed 4 short-term and 4 long-term visits per year, they have the right to receive 5 parcels or packages, 5 deliveries, as well as the right to purchase basic necessities and food in the shop

in the amount of no more than 2,000 roubles per month, they are allowed 6 telephone calls per year, are permitted to engage in sports in the gym and stadium, they are taken out to work, can study in a general education school and vocational school through full-time education, have the right to watch information television programmes for no more than 2 hours a day; besides this, they have the right to watch feature films daily, and can be transferred to a settlement colony with enhanced supervision upon serving 1/2 of the sentence term, from where they can be released on parole upon serving 2/3 of the sentence term.
e) enhanced regime prisons—for holding persons who have previously served deprivation of liberty at least twice and have been re-sentenced for committing grave and particularly grave crimes and sent by the court to serve the sentence in this type of institution, or who have been recognised as dangerous recidivists, or transferred there from general regime prisons as a sanction for malicious and systematic violations of the accommodation regime, attempts to escape, disorganisation of the work of PES institutions, and preparation for criminal activity.
In enhanced regime prisons, convicts are accommodated in blocks according to the conditions of serving the sentence:
All newly arrived convicts are held under strict conditions. Convicts under strict conditions are held in two-person cells; they are allowed 1 short-term visit per year (long-term visits are not provided), 1 parcel or package, 1 delivery; they have the right to purchase basic necessities and food in the shop in the amount of no more than 500 roubles per month, telephone conversations are not provided, they are not taken out to sports facilities or to work, they do not study in a general education school and vocational school, they have the right to watch information television programmes for no more than 1.5 hours a day, and have the right to watch 1 feature film per week.
Convicts who have not allowed violations of the accommodation rules during their time under strict conditions and have served at least 1/3 of the total sentence term under strict conditions are transferred to normal conditions. Convicts under normal conditions are held in two or four-person cells; they are allowed 2 short-term and 2 long-term visits per year, 2 parcels or packages, 2 deliveries; they have the right to purchase basic necessities and food in the shop in the amount of no more than 1,000 roubles per month, 1 telephone call per year is provided, they are permitted to engage in sports in sports cells for no more than one hour a day; they are taken out to work in working cells, can study in a general education school and vocational school through distance learning, have the right to watch information television programmes for no more than 1.5 hours a day, including recordings of speeches by the prison management, and have the right to watch 3 feature films per week.
Convicts who have served at least 1 year under normal conditions and have not allowed violations of the accommodation rules are transferred to lenient conditions.

Convicts under lenient conditions are held in four-person cells; they are allowed 3 short-term and 3 long-term visits per year, 4 parcels or packages, 4 deliveries; they have the right to purchase basic necessities and food in the shop in the amount of no more than 1,500 roubles per month, 3 telephone calls per year are provided, they are permitted to engage in sports in sports cells for no more than one hour a day; they are taken out to work in isolated sectors, can study in a general education school and vocational school through distance learning, have the right to watch information television programmes for no more than 2 hours a day, including recordings of speeches by the prison management, have the right to watch feature films daily, and can be transferred to a settlement colony with enhanced supervision upon serving 2/3 of the sentence term, from where they can be released on parole upon serving 3/4 of the sentence term
f) special regime prisons—for holding persons sentenced to deprivation of liberty for repeatedly committing particularly grave crimes, including those sentenced to life imprisonment, as well as for persons recognised as active members and leaders of criminal communities, particularly dangerous recidivists, “thieves-in-law”, and those convicted for grave crimes of a terrorist and extremist nature.
In special regime prisons, it is proposed to hold convicts under strict and normal conditions.
All newly arrived convicts are held under strict conditions. They are held in two-person cells. Short-term and long-term visits are not provided to them. Receipt of 1 parcel or package and 1 delivery is allowed, and they also have the right to purchase basic necessities and food in the shop in the amount of 250 roubles per month. Telephone conversations are not provided to them, they are not taken out to sports facilities or to work, and they do not study in a general education school or vocational school. They have the right to watch information television programmes for no more than 1.5 hours a day.
Convicts who have not allowed violations of the accommodation rules during their time under strict conditions and have served at least 1/4 of the total sentence term under such conditions are transferred to normal conditions.
They are held in two-person cells. They have the right to 1 short-term visit (long-term visits are not provided to them). Receipt of 2 parcels or packages and 2 deliveries is allowed, and they also have the right to purchase basic necessities and food in the shop in the amount of no more than 500 roubles per month. They have the right to 1 telephone call per year, they are not taken out to sports facilities or to work, and they do not study in a general education school or vocational school. They have the right to watch information television programmes for no more than 1.5 hours a day, and 1 feature film per week. Upon serving 2/3 of the sentence term under normal conditions of accommodation, they can be transferred to an enhanced regime prison.

g) educational homes (with normal and enhanced supervision)—for holding minors sentenced to deprivation of liberty;
h) medical-correctional and medical-preventive institutions (with normal and enhanced supervision)—for holding persons sentenced to deprivation of liberty suffering from grave illnesses and drug addiction.
In accordance with the assumed change in numbers, it is planned to create a new structure of PES institutions, including:
- 196 pre-trial detention centres with detention conditions meeting European standards;
- 210 settlement colonies, including settlement colonies with enhanced supervision;
- 246 general regime prisons with a limit of 1,000 places each, including 58 general regime prisons for women with a limit of 1,000 places each;
- 161 enhanced regime prisons with a limit of 1,000 places each;
- 21 special regime prisons with a limit of 400 places each;
- 84 medical-correctional and medical-preventive institutions;
- 33 educational homes for minors.
Sending convicts to correctional institutions while observing strict separation rules, that is, accommodating convicts in accordance with their social danger and personality characteristics.
Holding gang leaders and underworld authorities in conditions of complete isolation from both society and each other.
Sending persons sentenced to deprivation of liberty to a specific type of institution and their transfer there as a sanction or incentive must be carried out exclusively by court decision, taking into account the opinion of the institution’s administration and public monitoring commissions. When determining the term of deprivation of liberty with the convict being sent to prison, the court may take into account the harsher conditions of this or that regime of isolation from society.
3.3 Improving the efficiency of management in the PES, using innovative developments and scientific potential
Improving penal enforcement policy in order to implement international standards for the treatment of convicts and improve the effectiveness of correctional impact on them.
Developing models of prisons and settlement colonies based on the standards of the European Prison Rules (2006), taking into account the security requirements of society and PES personnel, as well as the realisation of the goals of correcting convicts.
Developing technical documentation, financial-economic justification, and architectural projects for prison buildings that meet the requirements of European standards.

Conducting regular censuses of convicts and personnel in order to obtain reliable data for making decisions on the further reform of the PES.
Creating and using a comprehensive system for evaluating the activities of PES territorial bodies and institutions.
Implementing the Concept for the Formation of an E-Government in the Russian Federation until 2010 in the part concerning the FPS of Russia.
Implementing the medium-term prospective Concept for the Development of the Documentation Support Service of the PES for the period until 2011, and preparing and implementing a similar concept for the period until 2020. Phased, block-by-step introduction of electronic record-keeping, including equipping all PES units and bodies with automated workstations, converting 100% of the documents of the archives of FPS of Russia institutions and bodies into electronic format by 2020. Creating the Main Information Centre of the FPS of Russia. Optimising the functions of directorates for federal districts and territorial management bodies for the constituent entities of the Federation.
Improving the infrastructure of information-telecommunication and other types of support for the functioning and development of the data transmission and processing system, information security, and information protection systems.
Creating a backup network resource management centre, which will allow for increasing the reliability of the FPS of Russia information-telecommunication network, and the storage, archiving, and protection of information.
Increasing the efficiency of personnel management and improving the process of preparing forces and means for actions in special conditions.
Providing PES users with the possibility of accessing their own resources and the public communication network, as well as the networks of interacting ministries and services based on inter-agency regulations and agreements.
Providing convicts and persons held in custody with the technical capability to use a wide range of telecommunication services, including videoconferencing facilities, electronic mail, etc. Further development of the special communication network for the purpose of ensuring the security of facilities and the general information security of the PES, participation in the creation and development of inter-agency networks for transmitting encrypted information of state authorities, and organising inter-agency electronic document flow and information interaction complexes on their basis.
Actively using the scientific potential of departmental higher and additional professional education institutions. Ensuring the priority of dissertation research aimed at the scientific analysis of topical problems of the practical activities of penal enforcement institutions and bodies, and increasing requirements for quality control of education.
Forming conditions for conducting fundamental, exploratory, and applied research, developing integration processes of fundamental science and education, and strengthening the interaction of departmental universities and FPS of Russia units with academic scientific institutions.
Strengthening the prognostic role of departmental science, orienting its scientific potential towards the proactive identification of trends and new forms of organising institution activities, and developing measures to prevent penitentiary crime. Developing comprehensive measures for the proactive response of institutions executing sentences to forecasted phenomena.
Preparing a concept for the development of scientific research in the PES. Ensuring its implementation through the effective use of material and human resources attracted to the sphere of the service’s scientific-technical activity.
Conducting scientific research corresponding to the modern level of development of penitentiary systems of foreign countries on the basis of formed laboratories, centres, and scientific-educational structures in the areas of activity constituting the content of the Concept in the part of using new technologies for improving the organisational-structural design and activity of the PES, criminological study of the personality of convicts and persons held in custody, preparing forecasts of the development of the situation in institutions and bodies executing sentences, as well as in the spheres of security and regime, educational, social, and psychological work with convicts, creating material and living conditions and medical services for convicts, their labour adaptation and professional training, development of alternatives to deprivation of liberty, staffing, and increasing the social status of PES personnel.
Creating scientific laboratories on the basis of higher educational institutions of the PES to ensure the activities of institutions and bodies executing sentences in implementing the main provisions of the Concept.
Optimising the system of attracting FPS of Russia educational institutions to scientific research on topical problems of PES functioning. Increasing the efficiency and level of coordination of scientific research.
Attracting the scientific potential of PES educational institutions to the development, testing, and implementation of a methodology for measuring the level of formation of special competencies of graduates, and procedures and control-measurement materials.
Increasing the role of the Research Institute of the FPS of Russia as the head scientific-research institution in the humanitarian-legal sphere. Strengthening the material-technical and information base of the Research Institute; introducing advanced information technologies into the institute’s scientific-research activity. Establishing a scientific laboratory on the problems of penitentiary medicine within the structure of the Research Institute of the FPS of Russia.

3.4 Ensuring international standards of treatment for convicts in places of deprivation of liberty and persons held in custody

3.4.1 In the sphere of regime and security.

Improving the rules determining the specific procedure for ensuring the regime and supervision, and the safety of convicts and personnel, as established by penal enforcement legislation.
Differentiation of the conditions for accommodating convicts and persons held in custody in order to ensure their compliance with established regime rules. Creating a system for studying factors contributing to excesses on the part of convicts for the purpose of developing proactive measures, developing effective stimuli for law-abiding behaviour, and strengthening the liability of malicious violators of the sentence-serving regime.
Creating a transparent, fair, strictly observed, and controlled system of motivations for convicts to engage in law-abiding behaviour, which leads to a change of regime and type of correctional institution, early release, or pardon. Optimising the participation of PES institution administration in the operation of mechanisms for parole and pardon, taking into account the behaviour and personality characteristics of convicts.
Creating a system of sanctions and punishments in relation to convicts for non-law-abiding behaviour, leading to temporary deterioration and tightening of accommodation conditions (restriction of the daily routine, use of additional household services, television broadcasting, participation in cultural events), and a change of regime and type of correctional institution.
Increasing the efficiency of supervision over the behaviour of persons held in pre-trial detention centres and correctional institutions, based on improving the quality of personnel training and improving the conditions of service. Creating a system of additional incentives for improving the quality of service in the sphere of regime and security.
Excluding the practice of illegal influence on the special contingent, ensuring discipline and order, and preventing and solving crimes through methods and means that violate the law and discredit the state’s penal enforcement policy.
Abandoning outdated educational practices (forms) that cause bitterness in the special contingent and provoke systemic conflicts in places of deprivation of liberty, in particular, the activity of “sections of legality and law and order” in their current form, with the de facto delegation of authority to individual convicts and their groups in relation to other convicts.
Developing a complex of measures to strengthen high moral-psychological qualities in employees, and the ability to resist various illegal actions on the part of the special contingent, while suppressing such actions using various methods of influence of a psychological and educational nature, using physical force and special means as a forced, extreme measure.
Creating a system for countering criminal manifestations by convicts based on the use of modern engineering-technical means of guarding and supervision, new technologies and approaches to organising the security of PES facilities, and forming a unified technical policy in the field of equipping them with complexes of engineering-technical means of protection (ITSON). Equipping all pre-trial detention centres and correctional institutions with modern integrated security systems.
Implementing the Concept for Improving the Technical Security of PES Facilities for the period until 2020.
Introducing monitoring of convicts’ behaviour using electronic control technologies (video surveillance, GLONASS/GPS bracelets, “wireless service” location technologies, Wi-Fi, etc.).
Increasing the level of organisation of special transports by improving the regulatory-legal framework, optimising escort routes, and improving interaction with state bodies and other structures involved in carrying out special transports.
Using satellite monitoring systems for the movement of special vehicles and special carriages for transporting convicts. Equipping special vehicles with modern video surveillance and communication means.
Modernising and optimising the system for guarding correctional institutions and pre-trial detention centres.
Increasing the efficiency of the access control regime at guarded facilities.
Bringing the conditions of service for guards and duty shifts into compliance with the norms established by legislation.
Improving measures to ensure the personal safety of pre-trial detention centre and correctional institution personnel, and strengthening their legal protection. Introducing advanced forms of ensuring the regime and security of personnel and convicts, and developing scientifically-based norms for the workload of operational, security, and regime service employees up to established norms.

3.4.2 In the sphere of material and living conditions of convicts

Completing by 2017 the construction and commissioning of 26 pre-trial detention centres, in which conditions for holding those under investigation meet the legislation of the Russian Federation, to eliminate the grounds for appeals by Russian citizens to the European Court of Human Rights.

Introducing amendments to the federal targeted programme “Development of the Penal Enforcement System (2007–2016)”, providing for the repurposing of the majority of existing correctional institutions into prisons and settlement colonies.
Ensuring clothing allowances for convicts and persons held in custody according to current clothing allowance norms in 2010—98%, in 2011—100%. Developing and approving new types of clothing allowances in 2012 that meet international standards and modern consumer properties. Ensuring new clothing allowances for convicts and persons held in custody in full by 2015.
Fulfilment of sanitary-hygienic requirements for the conditions of accommodation of convicts and persons held in custody in accordance with established norms.
Improving the organisation of nutrition for convicts and persons held in custody in accordance with international standards.
Ensuring food security and the independence of the PES from market fluctuations of food products by constantly increasing the level of self-sufficiency of PES units with main types of food in the total volume of financing for food provision.
Optimising the procurement system for PES needs in order to increase its economy, efficiency, and transparency. Transitioning to universal use of electronic auctions for the procurement of goods, works, and services for PES needs.

3.4.3 In the sphere of medical services

Developing departmental medicine as a component part of domestic healthcare based on the Concept for the Development of Healthcare of the Russian Federation until 2020.
Ensuring constant interaction with federal executive bodies in the sphere of healthcare.
Determining the justified ratio of medical services provided by PES specialists and specialists from municipal healthcare institutions.
Legislative consolidation of the system of compulsory medical insurance for persons held in custody, convicts, as well as PES employees. Participation in the implementation of federal targeted programmes and priority national projects. Increasing financing for medical support for persons held in PES institutions to the level of the “per capita financing standard” established by the Programme of State Guarantees for the provision of free medical care to citizens of the Russian Federation.
Reducing the level of morbidity, disability, and mortality for socially significant diseases, optimising the treatment of patients, and introducing modern methods of prevention, diagnosis, treatment, and rehabilitation for socially significant diseases based on advanced technologies.

Developing and strengthening the material-technical base of medical units and hospitals of PES institutions, bringing their equipment into compliance with standards, and increasing the efficiency of using bed capacity. Ensuring compliance with licensing conditions and requirements when PES institutions carry out medical and other licensed types of activity that fall within the sphere of departmental healthcare.
Ensuring continuity in carrying out medical-social measures in relation to convicts suffering from socially significant diseases who are being released from places of deprivation of liberty.
Strengthening the material-technical base of PES institutions that ensure state sanitary-epidemiological supervision at PES facilities.
Developing a network of sanitary-hygienic and bacteriological laboratories.
Improving monitoring in the sphere of state sanitary-epidemiological supervision in the PES.
Developing a network of medical-preventive and sanatorium-resort institutions of the penal enforcement system.
Providing PES employees with all types of medical services within the framework of the programme of state guarantees for providing citizens of the Russian Federation with free medical care;
Allocating funds to provide PES employees with high-tech types of medical care in healthcare institutions.

3.4.4 In the sphere of labour activity and professional
training of convicts
Creating conditions for the labour adaptation of convicts, improving the production-economic activity of the PES, and increasing the economic efficiency of the labour of persons serving criminal sentences in the form of deprivation of liberty by introducing amendments to the Budget, Civil, Tax, Labour, and Penal Enforcement Codes of the Russian Federation.
Widely using the involvement of convicts serving sentences in settlement colonies in labour activity as one of the main methods of re-socialisation. Creating new settlement colonies with enhanced supervision and general regime prisons mainly on the basis of existing correctional labour institutions that possess a developed and more competitive production base. Deployment of settlement colonies with normal supervision taking into account the geography of regional investment and production projects in order to utilise the labour of convicts in them.
Developing new principles of involving convicts in labour in conditions of prison accommodation and strict differentiation of the accommodation of the special contingent. Creating small cell-workshops and introducing individual forms of employment.

Resolving the issue with federal state authorities of the Russian Federation regarding granting correctional institutions preferences that oblige state and municipal customers to place part of the orders for the purchase of products they need, the performance of works, and the provision of services in correctional institutions by analogy with small business entities (from 10% to 20% of the volume of supplies of goods for state and municipal needs).
Conducting joint work with federal executive bodies of the Russian Federation that perform the functions of state customers to place orders for the supply of products they need, the performance of works, and the provision of services in correctional institutions as with a single supplier (performer, contractor) according to the norms of current legislation of the Russian Federation.
Establishing a special tax regime for correctional institutions, as well as resolving the issue of completely freeing correctional institutions from the tax burden with the aim of directing income from convict labour to improving their accommodation conditions, creating additional jobs, and developing the production and social sphere of the PES.
Conducting joint work with the authorities of the constituent entities of the Russian Federation on establishing quotas for enterprises and organisations for the employment of convicts and benefits for employers who provide them with jobs.
Interaction with federal and regional authorities in carrying out measures to certify workplaces for convicts, as well as granting correctional institutions benefits on payments for negative impact on the surrounding natural environment.
Interaction with federal state authorities of the constituent entities of the Russian Federation and municipal formations on creating conditions for the effective functioning of correctional institutions that are town-forming, in the part of placing orders at their available capacities for the production of products and performance of works for the needs of the corresponding constituent entities of the Russian Federation and municipal formations, and providing financial assistance at the expense of regional and municipal budgets for maintaining facilities on the balance sheet of the indicated correctional institutions that ensure the vital activity of settlements for which they are town-forming (fuel-energy facilities, medical, social, cultural purpose, automobile and railway roads, bridges, etc.).
Widely attracting business to create production sites in settlement colonies and to other forms of joint production and investment projects.
Expanding the production of agricultural products and stimulating the creation of settlement colonies with agricultural production in favourable natural-climatic zones.
Professional analysis of the state of the production and contractual base of the PES. Centralised development of the most promising directions

of the production activity of PES institutions for the purpose of priority provision of the system’s needs with its own production and the release of competitive products. Updating the production base of PES institutions taking into account the formulated directions and priorities of production activity. Optimising the activity of contracting released products.
Analysing existing conditions of convict labour and its payment. Ensuring compliance with labour protection and safety norms in the process of the production activity of PES institutions. Optimising the system of convict remuneration in order to increase the possibilities for compensating for damage to victims of crimes and the state, as well as stimulating convicts to re-socialise through labour and decent behaviour.
Determining forecast needs for working specialities and specialists by industry and region for aggregated groups of professions in demand in the labour market.
Improving and developing the system of primary professional education and professional training of convicts. Preservation, redeployment, repurposing, and creation of new federal budgetary educational institutions of primary professional education—vocational schools (legal entities implementing all forms of organisation of the educational process with varying volumes of compulsory convict classes, possessing licences for the right to educational activity, state accreditation, and the right to issue state-recognised documents of education) in all types of settlement colonies, general regime prisons, enhanced regime prisons, and educational homes for minors.
Introducing amendments to penal enforcement legislation, legislation on education, and other regulatory-legal acts that take into account the specifics of the activity of vocational schools in institutions executing sentences in the form of deprivation of liberty, in terms of establishing shortened periods of study for convicts under primary professional education programmes, introducing state accreditation for training programmes, establishing special requirements for personnel selection, student contingent, and the regulations of interaction between the school and the PES institution, and introducing unified norms for calculating the financial support of vocational schools (jointly with the Ministry of Education and Science of Russia).
Carrying out professional training and professional development of convicts taking into account the obtained results of monitoring forecast needs for blue-collar workers in PES institutions and regional labour markets, including in scarce working specialities, which will create high guarantees for employment and the return to society of law-abiding and capable citizens.
Creating public-state coordination councils by interested federal executive bodies in the constituent entities of the federation, consisting of representatives of labour and employment bodies and public organisations with the mandatory participation of PES institutions and territorial bodies, to develop and implement regional targeted programmes for population employment and to develop a system of social partnership in the sphere of training blue-collar workers from among convicts.
Introducing amendments to legislation on population employment and labour legislation in terms of extending individual legislative norms related to the training and employment of unemployed citizens to convicts who do not have work or a profession (jointly with the Ministry of Health and Social Development of Russia).

3.4.5 In the sphere of social, psychological, educational, and educational work with convicts

Creating a transparent, fair, and effective system of stimuli for convicts to re-socialise and engage in law-abiding behaviour, including updated mechanisms for parole, pardon, and transfer of convicts to places of isolation from society with a milder accommodation regime.
Providing the possibility, depending on behaviour, active repentance, and compensation for damage to victims, of changing the regime and type of correctional institution by court decision. In the absence of penalties, a convict is transferred to lighter conditions, including the possibility of transfer to a settlement colony with enhanced supervision from the lenient accommodation conditions of general regime prisons upon serving 1/2 of the sentence term, from where they can be released on parole upon serving 2/3 of the sentence term; from the lenient accommodation conditions of enhanced regime prisons upon serving 2/3 of the sentence term, from where they can be released on parole upon serving 3/4 of the sentence term. Parole is applied only in relation to convicts serving sentences in settlement colonies of both types, only at the initiative and with the support of the institution’s administration. Control over the behaviour of persons released on parole is assigned to the probation service and administrative supervision bodies of the Ministry of Internal Affairs of Russia. In the event of committing a repeat crime during the period of the unserved part of the sentence, the parolee who was released is held in strict prison conditions for no less than 1/2 of the new sentence term imposed by the court.
Expanding the benefits and rights of convicts under lenient conditions in general regime prisons, including the right to use the Internet under the administration’s control.
Providing short-term “leave” in settlement colonies for trips home, controlled by the probation service.
Providing opportunities for videoconferences with relatives and close ones.
At the same time, providing the institution’s administration with opportunities to apply to convicts who show negative behaviour, violate the regime, propagate and support “thieves’ traditions”, and incite convicts to resist the administration, tightening accommodation conditions and petitioning the court for their transfer to an institution of a stricter type (from a settlement colony to a settlement colony with enhanced supervision, from a settlement colony with enhanced supervision to a general regime prison, from a general regime prison to an enhanced regime prison, and so on).
In connection with the liquidation of GOST and EGZhT, introducing amendments to legislation providing for the extension of the terms of stay in the disciplinary isolation cell.
Regulatory development and application of other disciplinary measures for minor offences (ban on sports and participation in cultural events, ban on the use of television and press, entertainment literature, etc.).
Strengthening rehabilitative educational work in relation to convicts capable of re-socialisation, with special emphasis on involving them in labour activity, acquiring a profession, or re-qualifying; activating cooperation with civil society structures capable of exerting a positive humanitarian influence on convicts (paying special attention to cooperation with traditional confessions);
Developing social, psychological, and educational work with convicts in new types of correctional institutions in unity and interconnection, in the direction of ensuring the re-socialisation of convicts and their mastery of basic social functions as a necessary condition for correction and successful adaptation in society after release.
Optimising social, psychological, and educational work with convicts based on the functional interaction of employees of all services of correctional institutions and territorial PES bodies, with the involvement of representatives of executive authorities, the probation service being created, and civil society institutions in the correctional process.
Searching for and introducing new individual forms of work that ensure the provision of targeted social, psychological, and pedagogical assistance to each convict, taking into account his socio-demographic, criminal-legal, penal-enforcement, and individual-psychological characteristics, in conditions of abandoning the brigade-detachment form of organising the life of convicts.
Improving the spiritual-moral and patriotic education of convicts. Planning, organising, and conducting educational events in correctional institutions aimed at forming and developing in convicts the striving for socially useful activity and compliance with legal requirements and the rules of behaviour accepted in society.
Using broad cooperation with civil society structures, political parties, and public associations whose activity may be useful for humanitarian-educational influence on the special contingent. Activating interaction with traditional confessions, in particular, ensuring the possibility for convict-believers of traditional confessions to participate in religious rites; organising systematic educational influence of clergy of traditional confessions on the special contingent; widespread dissemination of positive practices of creating religious communities in correctional institutions; realisation of humanitarian projects joint with traditional confessions (as an example—the “Good Will” project joint with the magazine “Foma”).
Expanding forms of organising cultural leisure for convicts, club and hobby group work, and attracting figures of art, culture, and sports to this work, including those who have wide renown and positive authority. Replenishing library funds.
Increasing requirements for the scientific and methodological level of psycho-diagnostic and psycho-correctional work; developing and expanding the psychotherapeutic direction of the psychologist’s work; improving the scientific-technical support of the psychologist’s activity; optimising the diagnostic toolkit of the psychologist and the volume of psycho-diagnostic work; introducing innovative technologies, and adapting advanced domestic and foreign experience of work.
Developing new approaches to forming self-managing organisations of convicts, taking into account the interests and needs of the convicts themselves. Improving the legal regulation of their activity.
Consolidating social and psychological work in legislation as means of correcting convicts. Determining the main forms of social work with convicts, developing a standard for the staffing level of social workers, and increasing their number in correctional institutions in accordance with scientifically-based norms.
Introducing modern technologies of social assistance, protection, and support in relation to the most socially vulnerable categories of convicts, as well as the individual personality at all stages of serving the sentence.
Further development of favourable conditions for the general education of convicts, as well as their obtaining additional secondary and higher professional education through correspondence and distance learning. Developing and introducing special teaching methodologies that take into account the level of intellectual development and pedagogical neglect of convicts, as well as educational and corrective programmes for working with various categories of convicts.
Further improving the execution of sentences in relation to persons who have committed crimes at a minor age and are held in educational colonies, their differentiation according to criminal-legal characteristics, and creating conditions for the separate accommodation of those who have committed particularly grave crimes, those convicted for intentional crimes committed during the period of serving deprivation of liberty, and those who have previously served deprivation of liberty from other categories.
Using technologies of restorative justice and juvenile justice when changing the legal status of minor convicts and persons held in custody.

3.5 Attracting the public to social assistance and educational work with convicts, improving cooperation with civil society institutions. Creating conditions for exercising public control over the activity of the PES
Ensuring transparency in the activity of the PES based on the broad involvement of civil society institutions in the process of executing criminal sentences, exercising public control over the activity of the PES with the participation of the Commissioner for Human Rights in the Russian Federation and commissioners for human rights in the constituent entities of the Russian Federation, cooperation with non-governmental organisations, and mass media, based on studying public opinion about the work of PES institutions and bodies. Clarifying the aspects of penal enforcement policy, the rights and obligations of convicts, their relatives, close ones, and legal consultants that have public significance; public reaction to requests and complaints addressed to PES institutions that have received public resonance.
Gradually increasing the role of public monitoring commissions, in particular, testing their participation in ensuring the activity of institutions of parole and pardon, and appealing against the actions of institution administrations; preparing decisions on changing the type of regime and correctional institution as an incentive or sanction applied to a convict.
Interaction with representatives of the mass media on the issues of highlighting the ensuring of proper accommodation conditions for those under investigation and convicts, increasing the image of the service in the PES, and countering the discrediting of its activity. Assisting in the formation in society of a positive and respectful attitude towards the work of PES employees and their role in ensuring public security and well-being.
Expanding the practice of posting topical information on the official Internet sites of the FPS of Russia and its territorial bodies, as well as on the sites of major information agencies.
Increasing the role of Public Councils under the FPS of Russia and territorial PES bodies as coordinators of interaction with civil society institutions.
Active inclusion in the educational process of figures of culture and art, famous athletes, and in relation to youth-age persons—representatives of youth movements and organisations registered in the manner established by law.
Assisting the realisation of socio-humanitarian projects within the framework of which additional stimuli for convicts to engage in law-abiding behaviour and re-socialisation are created, in particular, at the expense of public participation in the arrangement of the fate of the special contingent being released from places of deprivation of liberty.
Using the potential of religious confessions in the spiritual-moral enlightenment and education of convicts and PES personnel, as

well as for the social adaptation of persons released from places of deprivation of liberty; creating the institute of prison chaplains.
Developing sponsorship activity, charity, trusteeship, and creating boards of trustees in each territorial PES body, as well as under correctional institutions.

3.6 Staffing and social status of the personnel of the penal enforcement system

Determining the norms for the staffing level of personnel of correctional institutions and pre-trial detention centres of the penal enforcement system based on the adopted norms of labour legislation of the Russian Federation and international practice. Establishing an optimal workload for employees of the penal enforcement system who work in direct contact with convicts and persons held in custody.
Implementing a policy of reducing the staffing level of PES employees due to changing accents in the state’s criminal-judicial policy, changing practices of executing criminal sentences, especially sentences in the form of deprivation of liberty, and using innovative technologies in the work.
Increasing the monetary allowance and pension provision of employees of the penal enforcement system due to the reduction of their staffing level while maintaining the existing wage fund. Increasing the share of the salary in the structure of the monetary allowance of employees of the penal enforcement system to no less than 50–70%.
Ensuring a high social status and prestige of the work of a penal enforcement system employee. Legislative definition of a system of social guarantees, including the allocation of housing to employees of the penal enforcement system and members of their families. Developing a network of regional medical-rehabilitation centres for the prevention of professional deformation, psychological overload, and family recreation for employees.
Broader application of the practice of material and moral stimulation of PES workers, and further development of the system of incentive measures.
Improving the quality of service and working conditions of PES employees, corresponding to the nature of the work and the level of working conditions of the personnel of penitentiary institutions of developed European states.
Developing and carrying out a complex of measures aimed at ensuring the safety of service and creating workplaces equipped with modern technical and telecommunication means for managing the processes of guarding, regime, and supervision over convicts and those under investigation.
Stabilising the professional core of PES employees due to the balance of processes of preserving and updating the quantitative and qualitative composition of cadres, and increasing their professional competence.
Using the rotation of management cadres as a priority direction for forming the personnel composition of the penal enforcement system.

Developing and carrying out a complex of measures aimed at introducing a competitive system for filling law enforcement service positions, including conducting competitive testing. Preparation and retraining of cadres taking into account further differentiation of types of sentence execution, increasing the role of alternative types of sentences, penitentiary psychology, and penitentiary medicine, as well as pedagogical and social workers for work with those convicted of committing grave and particularly grave crimes.
Increasing the quality of specialist training in existing departmental higher and additional professional education institutions.
Activating the work of PES personnel services in the labour market for the purpose of attracting specialists finishing service in the Armed Forces, law enforcement agencies, and specialised organisations to work in the FPS of Russia.
Forming a modern image of a new generation PES employee who possesses the latest psychological and pedagogical methodologies and technologies for influencing the behaviour of citizens in conditions of their isolation from society, including skills for working with new telecommunication systems.
Forming and developing in an employee the qualities and attitudes of a citizen and patriot, as well as a sense of professional pride in the work they perform.
Educating an intellectually developed, stress-resistant, sociable employee capable of comprehensively evaluating and forecasting all the consequences of decisions made, and working effectively in the new rehabilitation system of PES bodies and institutions, operating on the basis of principles of legality, humanism, and respect for human rights.
Improving the special and psycho-physical training of employees of the penal enforcement system by bringing the content of training as close as possible to the real conditions of operational-service activity, improving methodological support, and the conditions for conducting classes. Developing and popularising types of sports that have a service-applied orientation.
Implementing a complex of strict measures within the framework of the updated departmental plan to eradicate corruption and official abuses in the FPS system. Determining as priorities in this work the eradication of violations in the sphere of procurement for FPS needs, illegal assistance to parole, and corruption-related assistance to illegal access into places of deprivation of liberty of items, both permitted and prohibited for use.

4. Execution of sentences not involving deprivation of liberty,
and post-penitentiary adaptation
4.1 Development of alternatives to deprivation of liberty.
Rationalising policy in the field of criminal justice will lead to an increase in the total number of convicts without deprivation of liberty by 200,000 people by 2020 due to the introduction of restriction of liberty and other types of punishment into the Criminal Code, an increase in the number of sanctions providing for sentences not involving isolation from society, and the expansion of the practice of imposing these sentences by courts.
Effective application of sentences alternative to deprivation of liberty in relation to persons who have committed crimes of minor and medium gravity should ensure the protection of society from the criminal, a decrease in the level of criminalisation of society, the breaking up of the criminal community, and a decrease in the prison population.
These goals should be achieved through a combination of repressive-control functions and social-rehabilitative tasks.
In this regard, it is necessary to develop a state programme for the individual assessment of the offender, which must take into account constant and variable factors contributing to the commission of a repeat crime by a convict who is under the control of the state Probation Service. Based on the results obtained, forecast the risk level of the convict’s presence in society and take measures to reduce it, namely, carry out a complex of measures for the re-socialisation of the convict, including the use of psycho-correctional programmes aimed at reducing aggression and changing behaviour, as well as programmes for treatment for alcoholism and drug addiction.
In order to ensure effective control over the convict’s performance of duties and restrictions, use audiovisual, electronic, and other technical means of supervision and control, and automated computerised registration of convicts; introduce into the practice of institutions executing sentences not involving deprivation of liberty programmes for determining the circle of convicts who have a high probability of committing repeat crimes, as well as programmes for personality psycho-correction and behaviour change.
To achieve the indicated level of work, it is also necessary to solve the following tasks.
Improving legislation in the field of executing sentences not involving deprivation of liberty; expanding the list of sentences not involving isolation from society.
Improving the management structure of institutions executing sentences not involving deprivation of liberty.
Optimising standards of workload for employees ensuring the execution of sentences not involving deprivation of liberty.
Introducing into PES educational institutions a specialised course on preparing specialists for work in institutions executing sentences not involving deprivation of liberty, for the purpose of preparing qualified cadres.
Attracting local self-government bodies, the public, rehabilitation centres, and other organisations to the process of social adaptation and correction of convicts.
Strengthening interaction with local self-government and population employment, education, and healthcare bodies with the aim of social adaptation of minor convicts, and working with families.
4.2 Ensuring post-penitentiary adaptation of convicts, prevention of recidivism
Developing a system of measures for preparing the person being released for freedom. For persons finishing serving long terms of deprivation of liberty, provide the possibility of undergoing special training including wide information about changes in society and new forms of social life, and for some categories of convicts, provide the possibility of transfer to a settlement colony with permission for short-term missions to the place of intended residence.
Initiating the creation of a state Probation Service in the country. To ensure effective post-penitentiary adaptation, rehabilitation, effective application of sentences alternative to deprivation of liberty, and prevention of recidivism, it is necessary to create a modern state Probation Service. The Probation Service does not directly belong to the Penal Enforcement System, however, it is called upon to solve the tasks set by this Concept.
The experience of foreign countries testifies to the fact that a well-thought-out probation service reduces recidivism, reduces the burden on the penitentiary system, prevents the criminalisation of the personality, and, in the final analysis, contributes to a decrease in crime in society.
The purpose of probation consists in facilitating the social adaptation of persons who have committed criminal offences and preventing them from committing recidivist crimes.
The state probation service, as it functions in the majority of developed countries, is a state institution that works with people serving criminal sentences not involving full isolation from society (suspended sentences, forced labour) and helps former prisoners restore social skills, contributes to solving problems with work and housing, and provides psychological support if necessary, making re-socialisation processes irreversible.
The main directions of the work of this service, taking into account international experience, is the development, organisation, and coordination of state policy in the sphere of working with persons subjected to criminal punishment at stages before the passing of a verdict, after the passing of a verdict to a sentence not

involving isolation from society, and providing assistance to released persons.
The probation service conducts work in close interaction with prison and other federal agencies responsible for social policy.
It is proposed to create a Probation Service of Russia on the basis of existing penal enforcement inspectorates with its subordination to the Ministry of Justice of Russia.
The probation service is called upon to:
present pre-trial reports to the court and prosecutor’s office;
provide assistance to persons released from deprivation of liberty institutions;
develop and implement programmes for the correction of the social behaviour of supervised persons;
coordinate the progress of sentence execution for persons sentenced to forced labour;
exercise supervision over persons conditionally released from criminal liability, those with suspended sentences, and those released on parole, and provide them with necessary assistance.
A separate direction in the work of the Probation Service is work with juvenile offenders within the framework of the juvenile justice system.
Juvenile justice assumes the coordination and joining of efforts of the judicial system, structures of the Ministry of Internal Affairs of Russia, the Probation Service, the FPS of Russia, and the Ministry of Education and Science of Russia in working with minors with deviant behaviour. The probation service carries out interaction with federal and regional authorities on solving issues related to the re-socialisation of persons who have served sentences in the form of deprivation of liberty.
The wide involvement of volunteers for social work in the probation service is envisaged with the provision of benefits upon admission to higher educational institutions for legal, pedagogical, and psychological specialities.

4.2.1 Strengthening the interaction of the PES with executive authorities and local self-government on ensuring employment

Territorial PES bodies, together with the Probation Service, determine the needs for dormitories (social centres) for convicts being released who have lost social ties. The creation of such dormitories is assumed at the expense of regional budgets with the participation of the federal budget (administrator—Ministry of Health and Social Development of Russia), as financial possibilities arise. Dormitories should be located in places of realisation of major investment programmes or sectoral labour shortages. A condition for living in the dormitory will be the conclusion of a corresponding labour contract.

The possibility of privatising a room in a dormitory is envisaged upon the creation of a family and working no less than seven years under a labour contract.
PES institutions will build professional training programmes taking into account requests from regional authorities and profile ministries.
Conducting work on replacing foreign labour force in the regions with the contingent of settlement colonies and released persons who have lost socially useful ties.
Developing programmes for the development of housing and communal services taking into account these possibilities.
Creating a strategy for the development of sparsely populated agricultural districts in connection with the possible migration of the above-indicated category of persons there.

4.2.2 Measures to increase the efficiency of control over the behaviour of the released dangerous special contingent (administrative supervision, operational-search activity)
Re-establishing the system of administrative supervision subordinate to the Ministry of Internal Affairs of Russia.
Adoption and implementation of the draft federal law No. 151943-4 “On Administrative Supervision of Persons Released from Places of Deprivation of Liberty”.
The court’s designation of a person as a recidivist or particularly dangerous recidivist entails not only administrative supervision over him after release but also planned operational accompaniment of this person, up to the moment of his removal from the indicated status.
Operational accompaniment is also carried out on a mandatory basis for persons who were convicted of terrorist and extremist activity, recognised by the court as leaders of criminal groups, and released from places of deprivation of liberty in connection with the expiration of the sentence term.
5. Expected results of the implementation of the Concept
This Concept is called upon for the period until 2020 to lay the foundation for the further development of the PES, bringing its activity closer to international standards and the needs of social development. As a result of the implementation of the Concept by 2020, the following main tasks will be solved:
- the sphere of application of criminal-legal measures not involving deprivation of liberty will be expanded, and thereby conditions will be created that exclude the spread of criminal subculture in society;
- there will be an overall decrease in the number of those convicted for crimes of minor and medium gravity in places of deprivation of liberty, which will provide the opportunity, without increasing the existing limits of correctional institutions, to ensure the execution of sentences for latent crimes that will be uncovered in the future given the assumed strengthening of the efficiency of law enforcement body work;
- a system of clearly regulated stimuli for law-abiding behaviour of convicts will appear, on the one hand, and penalty measures, on the other;

- a system of new correctional technologies for working with convicts, based on the achievements of psychology and medicine, pedagogy, and law, will be developed and tested;
- the level of material support for PES personnel and their social-legal protection will be significantly increased, and the workload on employees of bodies and institutions executing sentences will correspond to the workload accepted in penitentiary institutions of developed European states.
- due to the decrease in the overall level of crime in the country, direct economic losses from corruption and other crimes, which in 2008 amounted to more than 200 billion roubles just for completed criminal cases, will be reduced, and the demographic situation will improve;
- 40 institutions will be freed up, and a large volume of land plots and property will return to civil economic turnover;
- the problem of labour shortages in many socially significant sectors of the national economy will be partially solved;
- conditions will be created for reducing migration flows and related budgetary expenditures; in agriculture alone, 635,000 registered migrants currently work;
- crime related to migration will decrease; in 2008, migrants committed about 70,000 crimes;
The main social effect will, undoubtedly, be the stopping of the process of criminalisation of society’s consciousness, the restoration of social justice, and trust of the population in justice and state power as a whole.
6. Stages of implementation of the Concept.
First stage (2009–2012)—approval of the Action Plan and development and adoption of Federal targeted programmes for the main directions of implementing the Concept.
Changing criminal, penal enforcement, and administrative legislation, adjusting procedural grounds, and investigative and judicial practice of selecting a preventive measure in the form of custody.
Broader introduction into judicial practice of sentences alternative to deprivation of liberty.
Returning to the practice of recognising a person as a dangerous and particularly dangerous recidivist, creating corresponding legal grounds for this.
Creating a system of administrative supervision subordinate to the Ministry of Internal Affairs of Russia.
Forming a network of special detention centres for persons accused of minor crimes and who do not have a permanent place of residence.
Testing new forms of activity of public monitoring commissions and new practices of parole and pardon.
A decrease, as a result of adopted legislative and other measures, in the total number of persons deprived of liberty.
Realisation of the Concept’s provisions providing for the growth of Russia’s international authority as a democratic legal state capable of creating and maintaining the functioning of an open and transparent PES that meets international standards.
Realisation of the Concept’s provisions related to post-penitentiary rehabilitation and re-socialisation of convicts being released from places of deprivation of liberty.
Creating a state Probation Service subordinate to the Ministry of Justice of the Russian Federation.
Developing legislative support for its activity, training employees, and forming the Service’s staff.
Ensuring legislative grounds and introducing into practice the principles of strict separation of convicts, that is, separate accommodation of the criminally oriented special contingent and convicts who do not pose a significant social danger.
Repurposing part of correctional institutions and pre-trial detention centres into special regime prisons.
Creating special regime prisons will not require additional budgetary allocations, as they are provided for by the adopted Federal targeted programme for the construction of pre-trial detention centres and correctional institutions. At the same time, the appearance of special regime prisons already at an early stage of implementing the Concept will allow isolating gang leaders and underworld authorities, “thieves-in-law”, and ideologically motivated terrorists and extremists from the main part of convicts, breaking their criminal ties, and depriving them of the possibility to direct the participants of the criminal underground remaining at liberty.
Second stage (2013–2016)—as material possibilities arise, repurposing the majority of correctional institutions into prisons of general and enhanced regime, and creating new settlement colonies.
Creating under the auspices of the Probation Service a wide network of social centres for post-penitentiary adaptation, including in rural districts and districts with a shortage of labour resources.
Expanding the functions of the Probation Service, including mediation for reconciling parties.
Analysing the work carried out and, if necessary, adjusting the measures provided for by the Concept, including:
ensuring personnel activity conditions that correspond to international standards;
improving and expanding programmes for behaviour correction and rehabilitation of persons released from serving sentences.
Third stage (2016–2020)—completion of planned and programme measures for the main directions of PES activity provided for by the Concept. Developing a document on planning the development of the PES and the Probation Service for the period 2020–2030.

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Concept for the Development of the Penal Enforcement System of the Russian Federation until 2020