CONSIDERATION OF REPORTS SUBMITTED BY STATES PARTIES UNDER ARTICLE
19 OF THE CONVENTION
Third
periodic reports of States parties due in 1998
Addendum
ITALY*
[22 July
1998]
1. Italy's
second periodic report on the Convention against Torture and Other
Cruel, Inhuman or Degrading Treatment or Punishment was presented
in 1994 (CAT/C/25/Add.4). This report was examined by the Committee
on 27 April 1995. At the beginning of the first meeting on that
occasion the Italian delegation participating in the discussion
made a far-ranging presentation and subsequently replied to a series
of ques-tions put by Committee members. At the end of the discussion,
the Committee formulated their conclusions and recommenda-tions.
Subsequently, examination of the Committee's conclu-sions induced
the Italian Government to present an additional document entitled
"Observations of the Italian Government on the Conclusions of the
United Nations Committee on the Convention against Torture on the
Occasion of the Discussion of the Second Report". This document
was forwarded to the Committee via the normal channels.
2. Underlying
written observations of the Italian Government was not only the
desire to clarify a series of problems of considerable importance
concerning not only the working methods of the Committee and the
conclusions at which it had arrived, but also the need to further
clarify some aspects of the application of the Convention in Italy
by furnishing extensive illustrations of the relevant regulations
of Italian legislation, an overview of the more significant cases
of alleged ill-treatment, and statistical data regard-ing the matters
covered by the Convention.
3. On the
occasion of the preparation of the third report, the Italian Government
took into due consideration both the observations made by the Committee
regarding the criteria for the preparation of periodic reports (CAT/C/14
of 18 June 1991) and the concerns and recommendations formulated
in 1995.
4. The
Italian Government, long since committed to being in the front line
when it comes to promoting human rights, both in Italy and the world,
is fully aware that at the global level its action ranks among the
most advanced and progressive. Notwithstanding this fact, there
obviously can occur individual episodes of violation of international
norms, but such episodes are promptly reported and prosecuted in
full respect of the systems and procedures established by the Italian
domestic legal order.
5. Some
further comments concerning the conclusions formulated by the Committee
in 1995 will be included in the present report.
6. It should
be mentioned here that, as on a previous occasion, Law No. 3815
of 3 June 1997 allocated a contribution of Lit 160 million to the
United Nations Voluntary Fund for the Victims of Torture.
I. CHANGES IN THE ITALIAN LEGAL SYSTEM AND MEASURES
ADOPTED IN VIEW OF THE COMMIT-TEE'S CONCLUDING OBSERVATIONS ON THE
SECOND PERIODIC REPORT
A. The
problem of the introduction of the crime of torture into
the Italian penal order
7. The
two previous reports, as well as the supplementary observations
of the Italian Government on the occasion of the discussion of the
second periodic report, gave an ample overview of the principles
underlying the Italian penal order concerning the matters with which
the Convention against Torture is concerned. Since the Italian Government
is interested in developing its collabora-tion with the Committee
and thereby ensuring complete respect of the principles contained
in the Convention, faced with the doubts expressed by the Committee
regarding full compliance by Italy with the obligations deriving
from articles 1 to 4 of the Convention owing to the fact that no
specific crime known as "torture" has as yet been introduced into
the Italian system, the Government has sought to clarify - after
furnishing extensive illustrations of the reasons that have induced
Parliament and the various successive Governments not to create
a new and autonomous crime covering the conduct that falls under
the defini-tion of "torture" as set forth in the Convention - that
Italy not only fully complies with all the obligations that derive
from its signature of the Convention, but for many years - and certainly
already in the days before the Convention - has had a penal system
that ranks among the most complete and advanced when it comes to
respect of the loftiest principles of law.
8. It would
therefore be a purely academic exercise devoid of practical usefulness
if the occasion of the submission of the third periodic report were
to be used for re-examining the entire manner in which the Italian
penal system safeguards the rights and liberties of the person,
other than to reiterate that the Italian juridical system provides
a sanction for all conduct that can be considered to come under
the defini-tion of torture as given in article 1 of the Convention
and that this sanction is ensured through the complex system of
incriminating facts and aggravating circumstances that was explained
-in previous reports. As compared with penal systems that provide
only a single norm that expressly punishes the crime of torture,
it is precisely this complete-ness and complexity that ensures correct
repression of the multiplicity of possible conducts covered by the
concept of torture, because it enables the judge, when the accused
is found guilty, to modify the punishment so as to make it effectively
proportional to the gravity of the crime committed. Indeed, there
can be no doubt that the concept of "torture" can comprise an ample
range of conducts that differ from each other so widely as to make
it practically impossible to list them fully within the bounds of
a single incriminating norm, so that, with all possible good will,
one would inevita-bly end up by either - if one wanted to aim at
a norm containing an express list of all the conducts to be punished
under that heading - not including in the list a whole series of
conducts that should theoretically be covered by the concept of
torture, or - if one chose the other possible option of indicating
in a generic manner what are the conducts that the law requires
to be demonstrated before a person can be incriminated under this
heading -that the norm would be deemed to be constitutionally illegitimate
on account of violation of the principle of legality, and this from
the point of view of lack of sufficient specificity within the meaning
of article 25 of the Constitution.
9. Bearing
the above in mind, it must nevertheless be mentioned here that the
competent structures of the Italian Ministry of Justice are currently
studying, not least in view of the fact that the fiftieth anniversary
of the Universal Declaration of Human Rights is to be celebrated
this year, the possibility of arranging for the introduction of
some new norms that will make it possible to give more prominence
to the commitments that Italy assumed when signing the Convention
against Torture, though without thereby overwhelming the already
complete and exhaustive system of incriminating facts and cases
in connection with safeguarding the rights and liberties of the
person. In this respect the study, undertak-en with a view to proposing
a bill, is oriented towards the introduction of a special aggravating
circumstance in a norm to be called "torture". The said norm should
specify in sufficiently specific terms that "torture" has occurred
when the guilty party has committed crimes with abuse of the powers
or violation of the duties inherent in a public function or a public
service (an aggravating circumstance already envisaged among the
common aggravating circumstances in article 61, paragraph 1, clause
9 of the Constitution), adopting ill-treatment or acting with cruelty
towards persons (aggravating circumstance already envisaged in clause
4 of the above article) or having recourse to other forms of physical
or moral torture with a view to obtaining any kind of collaboration
from the victim. The increase of the punishment is envisaged as
between one third and one half that already provided for by other
norms of the Penal Code (see, for example, articles 301, paragraph
2, and 585, paragraph 1, Penal Code).
10. With
a view to ensuring effectiveness of punishment in cases where the
aggravating circumstance is duly confirmed, the norm should also
envisage exclusion of the possibility of nullifying the greater
punishment it is proposed to introduce in these cases by means of
recourse to a judgement of the equivalence or prevalence of attenuating
circumstances and, further, that the punishment to be inflicted
in concrete terms cannot be less than one third of the maximum punishment
envisaged for the basic crime.
B. Precautionary measures and rights of the
defence
11. Law
No. 332 of 8 August 1995 introduced a number of modifications in
the regime of precautionary measures (detention) and the rights
of the defence. In particular, article 2 of the Law introduced into
the Code of Penal Procedure the norm of article 141 bis,
which disciplines the modalities of documenting the interrogation
of persons under detention by requiring that any further questioning
outside court has to be docu-mented by sound or audio-visual recordings,
failing which it may not be used in evidence. Quite a few people
have seen that the reason underlying this provision is precisely
to provide a deterrent against possible attempts to coerce the questioned
party or evade the rules that govern questioning, first and foremost
the rule that requires the prisoner to be informed that he is free
not to reply.
12. Mention
should also be made of the norm of article 3 of the Law which amended
the provisions of article 274, paragraph 1, clause (a), of the Code
of Penal Procedure. Article 3 stipulates that the effective danger
of evidence being polluted is not to be inferred from a suspect's
refusal to make statements or to admit the facts with which he is
charged. In this connection, moreover, it is worthwhile to underscore
that the prohibition that prevents the judge from turning the accused's
silence into an argument against him must be considered to apply
also to every other kind of decision, for otherwise the faculty
of not replying would be rendered devoid of all significance.
C. New legislative provisions regarding foreigners
13. Following
a very thorough debate, Parliament recently passed Law No. 40 of
6 March 1998, which contains a new regime governing immigration
and the condition of aliens. These regulatory provi-sions undoubtedly
represent a further step forward in the direction of implementing
the principles established by the Universal Declaration of Human
Rights. Though the new law confirms that any alien present in the
territory of the State enjoys all the fundamental rights of the
human person in conformity with the interna-tional regulations in
force, the principles of international law and the regulations of
national law (art. 2), it contains a series of principles that in
themselves configure a "foreigner" status. Indeed, the alien enjoys
a series of rights and is subject to a series of duties that undoubtedly
contribute to improv-ing his conditions of life. In particular,
the alien who legally lives in the country is recognized as enjoying
civil rights, including participa-tion in local public life, as
well as parity of treatment vis-à-vis Italian citizens when it comes
to juridical protection of rights and legitimate interests, always
within the limits and the modes envisaged by law.
14. In
this context, it should also be specified that communication to
the alien of the measures relating to his entry into, sojourn in
or expulsion from the country must be translated into a language
he understands. The Law also establishes his right to get in touch
with the diplomatic representation of the country of which he is
a citizen and that the judicial authorities, the forces of public
order and every other public official have the obligation of informing
the said diplomatic or consular representation of any and all measures
adopted against its citizens in matters concerning their personal
liberties, removal from Italian territory, and in the event of hospitalization
or death.
15. Considerable
importance also attaches to the disposi-tions contained in Title
IV of the Law, which aim at recogni-tion and protection of the right
of families to be united and make it clear that, in all administrative
and juridical proceedings that seek to implement this right or concern
minors, priority has to be attributed to considering the best interests
of children in conformity with the Convention on the Rights of the
Child.
16. Equally
important are the norms contained in Title V, which lay down the
rights and duties of aliens in matters of health assistance, education
and housing, as well as their right to participate in local public
life and the rights connected with integration and social welfare.
Among the latter, particularly innovative are the provisions (art-s.
38 and 39) concerning the institution of reception centres intended
to provide accommodation for foreigners, including illegal immigrants,
whenever there exist special emergency situations in which they
find themselves temporari-ly unable to satisfy their housing or
food requirements, and the right to health and social assistance,
including the right to particular economic benefits for specific
categories of subjects in unfortunate circumstances.
17. The
measures in favour of social integration (art. 40) seek to encourage
the activities intended to make the insertion of foreigners into
the new sociocultural context of the host country more effective
and less traumatic and, at the same time, facilitate mutual respect
of cultural differences.
18. Inasmuch
as it is closely connected with presumed accusations of discriminatory
attitudes vis-à-vis foreigners, considerable interest also attaches
to the definition of the concept of a discriminatory act (art. 41):
it is under-stood as any activity that implies an exclusion or a
prefer-ence based on race, colour, ethnic origin or religious convictions
and sets out to compromise the recognition or the exercise in conditions
of equality of the human rights and fundamental liberties in the
political, economic, social and cultural field.
19. Further
on, the new law also indicates the principal juridical remedies
of a civil nature for the purposes of ensuring cessation of acts
of discrimination (art. 42). They consist, in particular, of immediate
protection of the offended juridical interests, which may be injured
also by illicit behaviour of public officials; the appropri-ate
powers are exercised by the civil magistrate's courts (pretori
civili), which are authorized to specify the penal sanctions
to be applied if their decisions are not observed.
20. As
regards the profile of the regulations specifically concerned with
preventive control of the frontiers and the rejection and expulsion
of foreigners who have entered the country irregularly, the appropriate
norms once again consist of provisions that safeguard the fundamental
rights of the person and aim at preventing the possible commission
of discriminatory acts against non-Italian citizens. For example,
an alien refused entry at the frontier is to be provided with assistance
at the frontier post (art. 8, para. 5), while whenever a foreigner
cannot be expelled immediately, he is to be granted a temporary
stay of not more than 20 days at appropriate centres set up for
this purpose by means of a police measure subject to validation
by a judge. In the course of this stay he is to enjoy the right
to assistance, full respect of his dignity and freedom of correspondence
with abroad, including by telephone (art. 12).
21. Notwithstanding
its inevitably repressive aspects with respect to frontier control,
the recently approved legislation is characterized more by its social
nature expressive of a different and new policy of accepting foreigners,
to be carried forward with great efforts and restraint both by the
State structures, and particularly the police forces, and the local
authorities and volunteer associations. A confirmation of the new
orientation can be deduced also from the unanimous apprecia-tion,
not least by international observers, of the way the Government
handled the recent emergency represented by the sudden influx of
some 1,000 Kurds who asked for political asylum and the well-known
events involv-ing Albanian refugees.
22. In
view of the very obvious need to adopt adequate measures vis-à-vis
foreign citizens present in Italian territory over and above the
previously mentioned Law No. 40 of 6 March 1998, Parliament is considering
a bill that accords humanitarian protection and the right of asylum
and is intended to institute an organic asylum regime. This instrument,
in conformity with article 10 of the Italian Constitution and in
keeping with the obligations deriving from the Convention relating
to the Status of Refugees of 1951 and the other international agreements
signed by Italy, has as its primary goal ensuring complete protection
and total respect of individuals who find themselves in this situation.
23. One
of the most important aspects of this governmental legislative initiative
is the possibility of temporarily accepting persons who, even though
they do not satisfy the requirements for obtaining refugee status,
nevertheless find themselves in de facto situations that prevent
them from returning to their places of origin. People in this category
have therefore been granted a whole series of welfare measures,
including the right to health assistance, temporary board and lodging,
and telephone communications. Other significant innovations of the
bill under consider-ation include greater powers for the Central
Commission in the recognition of the right to asylum, the rationalization
and simplification of procedures for the recognition of this right,
and review of refugee status at five-year inter-vals. Together with
the introduction of assistance and social integration measures that
are to be implemented by the local authorities, the bill also recognizes
and acknowledges the role of non-governmental organizations in protecting
the civil and human rights of such people from the moment they submit
their application through to their eventual integration into the
new Italian environment.
24. These
proposals, when finally approved, together with the law on foreigners
in general, will constitute a further step forward. They provide
instruments for effective and appropriate interventions to face
the many different situations, including emergencies, that may well
become more frequent in the future and which therefore call for
the harmonization and concordance of the legislation and the administrative
practices of the various countries most affected by these problems.
D. Treatment of prisoners
25. The
Italian Government is making ever more intensive efforts at the
normative and supervisory levels to ensure gradual improvement of
the living conditions of the prison population and the protection
of their rights, and in this general context particular attention
is being paid to prisoners who are citizens of foreign countries.
26. As
regards the Italian normative system in this field, mention should
be made of article 1, paragraph 2, of the Penitentiary Order and
article 33 of the Executive Regula-tions associated therewith. The
first of these provisions states that "Treatment is to be characterized
by absolute impartiality, without discrimination according to nationality,
race and economic and social condition, political opinions or religious
beliefs". Article 33 of the Executive Regulations says that "When
executing measures that deprive foreign citizens of their liberty,
due account is to be taken of their language difficulties and cultural
differences" and that "they must be given the possibility of contacting
the consular authori-ties of their country". The order currently
in force is, therefore, quite unequivocal in prohibiting any form
of discriminatory behaviour to the detriment of foreign prisoners,
be they from within or outside the European Community, but also
makes it an express duty of the Prison Administration to overcome
the difficul-ties that foreign prisoners experience during their
detention on account of language and cultural differences.
27. Other
specific norms establish the right of those who belong to a religion
other than Roman Catholicism, which is often the case of foreign
prisoners, especially when they come from countries outside the
Community, to freely practise their own rites.
28. The
Ministry of Justice has always made very intensive efforts to ensure
full implementation of the normative principles that have just been
set forth. In this connection, it should be recalled first of all
that any measure connected with the treatment of prisoners is always
applied quite impartially to all prisoners, whether Italian or foreigner.
In particular, and especially in the institutions where prisoners
from other countries are relatively numerous, it has been the practice
for a considerable time to organize literacy courses designed to
enable such prisoners to acquire a sufficient knowledge of the Italian
language. In 1989, the various penitentiary administrations were
made aware of the need to remove obstacles preventing non-Catholic
prisoners from performing the rites of their particular religion
and, more particularly, to assist prisoners whose religious beliefs
require them to refrain from consuming particular foods by providing
alternative foods permitted by regulations.
29. Instructions
have also been circulated with a view to facilitating contacts between
foreign prisoners and the consular authorities of their countries
of origin, in accordance with the relevant provisions of the Vienna
Convention on Consular Relations of 24 April 1963, ratified in Italy
by means of Law No. 804 of 9 August 1967.
30. Lastly,
with a view to attenuating the undoubtedly greater difficulties
that foreign - and especially non-Community - prisoners encounter
in being granted measures alternative to imprisonment (due primarily
to the lack of a residence permit, which prevents them from obtaining
the work permit necessary for being hired by an employer, an essential
condition for obtaining an alternative measure), an understanding
among the various interested Ministries (Justice, Interior, Foreign
Affairs and Labour) has been promoted by the Penitentiary Administration,
on the basis of which it has been agreed that foreign prisoners
to whom the judicial authorities propose to grant such alternative
measures may also be granted temporary work permits for the period
of the duration of their sentence.
31. Some
time ago, the Ministry of Justice issued various instructions that
sought to facilitate telephone contacts between foreign prisoners
and their families resident in the countries of origin, not least
in view of the fact that, as a general rule, the telephone is the
only means by which foreign prisoners can keep in touch with their
families, visits to the prison being almost impossible on account
of the distances involved. These instructions suggested that the
individual penitentiary administrations should avail themselves
of the assistance of interpreters, to be chosen from those enrolled
in the special registers kept by the courts, in all cases where
the prison did not have a staff member capable of correctly understanding
the foreign language in which the telephone conversation was to
be held. This made it possible to overcome the problem that the
call could not be authorized when there was nobody capable of following
the conversation, a difficulty that derived from the fact that paragraph
9 of article 37 of the Executive Regulations, at least in the form
in force at the time, required every such call to be overheard (and
obviously also understood) by a member of the prison staff, who
also had to record it.
32. It
should also be noted that this problem has become considerably less
acute following the amendment of paragraph 9 of article 37 of the
Executive Regulations in June 1993, according to which the requirement
that the conversation be overheard and recorded is no longer generalized
but obtains only when it is specifically ordered by the competent
juridical authority.
33. The
Ministry of the Interior has likewise circulated instructions to
the various offices of the State Police with a view not only to
making them more sensitive to preventive action which could avoid
ill-treatment of such prisoners, but also to specifying the manner
in which they were required to behave when they had to deal with
prison populations. The subjects covered by these directives include
problems of a general nature, but also specific situations in which
prisoners from outside the Community could come to find themselves.
For example, the instructions make explicit reference to the manner
in which prisoners are to be transferred, possibly with the use
of handcuffs, and on such occasions the prison staff are required
to observe special modalities when the person to be transferred
is female or not yet 18 years of age. In the same context, it has
also been specified - with disciplinary measures to be applied in
case of transgression - that members of the police forces performing
this activity have to take every possible precaution to safeguard
the dignity of the persons concerned, who are to be kept away from
every possible form of publicity and other situations that could
cause them unjustified embarrassment.
E. Training of members of the police forces
1. State Police
34. In
general, it may be said that all the programmes of the training
courses for the personnel of the State Police now include lectures
on the fundamental rights of the person. This topic, of fundamental
interest for a democratic police force at the service of the citizen,
is further examined in the light of both the Italian constitutional
order and the international juridical order, be it customary or
based on a convention. With a view to inculcating a new approach
to multi-ethnic culture among policemen and enriching their professional
experience in this particular sector, the training programmes envisage,
for example, that constitutional law will be taught with constant
reference not only to the Universal Declaration of Human Rights
but also the Convention for the Protection of Human Rights and Fundamental
Freedoms and the Convention against Torture. The basic text used
in the training courses contains all the essential elements for
acquainting the trainees with both Italian constitutional law and
its international counterpart, especially as far as Europe is concerned.
Use of this text enables the members of the police forces to obtain
in-depth knowledge of the individual aspects of this topic.
35. The
teaching programmes covering operational techniques, especially
those connected with prevention and intervention actions, accord
a great deal of time to professional deontology and the kind of
behaviour that police personnel have to adopt in order to ensure
that their actions will be characterized by correctness, common
sense and respect for the person.
36. For
the purpose of providing professional training and qualification
at a higher level, these courses comprise not only lessons and debates
intended to illustrate the existing international instruments that
seek to prevent discriminatory phenomena and social marginalization,
but also specific talks on the theme "Universal human rights safeguards",
generally given by university lecturers specializing in this area
and with the precise intention of enlarging the policeman's knowledge
of juridical and sociological profiles that are coming increasingly
to the fore in connection with the widespread presence of multi-ethnic
communities in the country. Furthermore, bearing in mind that police
officials are required, among other duties, to give lectures not
only at the police training schools but also, as part of professional
updating activities, at their own duty stations, intense efforts
have been dedicated to informing these officials through the organization
of seminars on such topics as Islamic fundamentalism and the new
forms of racism, xenophobia and anti-Semitism and an appropriate
course for the higher officials of the Frontier Police within the
context of the provisions of the Schengen Treaty.
37. Among
the requirements now deemed to be essential for entry into the State
Police is an aptitude for interpersonal communication, as envisaged
by present legislation (articles 4, 5 and 6 of Presidential Decree
No. 904 of 23 December 1983). More concretely, following the learning
of the basic discipline, not least as far as human rights are concerned,
every future member of the police is required to pass a series of
individual and collective tests, followed by an interview, to ensure
that he/she possesses this quality.
2. Carabinieri
38. The
Carabinieri have always dedicated ample time to the study of human
rights and humanitarian law in the context of the teaching programmes
held at all their training schools. Knowledge of this subject matter
has to be seen not only in relation to judicial police and public
safety activities, but also in the context of the various peacekeeping
missions in which the Carabinieri participate, both alone and jointly
with the other armed forces. With a view to creating greater consciousness
of these questions at all levels, the Carabinieri have laid down
precise lines of training and specialization, which include interaction
with the universities.
39. The
current academic year has seen the insertion of victimology into
the training programmes, a subject that introduces a different approach
to the phenomenon of crimi-nality: it can no longer be considered
exclusively from the point of view of the author of the crime, but
also takes due account of the needs of the persons offended by the
crime. Indeed, the treatment of the victims, together with prevention
and repression of crime, has to constitute the principal objective
of anyone who has responsibility in this domain.
40. At
the Officers School there has been established a Chair of Law Applicable
to Armed Conflicts. The aim is to transmit to the lieutenants attending
the training courses full knowledge of the norms of international
and domestic law applicable to armed conflicts, so as to enable
them to distinguish licit from illicit behaviour, especially at
the practical level, and to perform correctly the functions of military
and military judicial police. In particular, this training seeks
to confer greater insight into the juridical regime of subconflictual
operations in foreign territory and of humanitarian interventions
or assistance. The course programme also provides for study of the
Universal Declaration of Human Rights and the principal international
human rights conventions.
41. The
Carabinieri has made an agreement with the Research and Study Centre
on the Rights of Man of the Free University (LUISS) for the proper
preparation of its personnel. This course is organized as a series
of lectures held at the various training schools. The teaching programme
is comprised of cycles of eight lectures given at the Officers School
and the School for Sergeants (Marescialli) and Corporals
(Brigadieri), and cycles of three lectures at Carabinieri
Cadet Schools. The courses are given by LUISS lecturers and concentrate
on individual human rights themes and the protection of human rights
in the international arena. Every Regional Carabinieri Command,
moreover, arranges for periodic lectures on the same themes under
the overall guidance of General Command.
3. Penitentiary police (warders)
42. The
Penitentiary Administration has come to grips with the problem of
the treatment of foreign prisoners also at the level of the training
of its own personnel, deeming intervention at the formative moment
of penitentiary personnel to be essential for resolving the problems
in question, and irrespective of whether they are members of the
corps of Penitentiary Police or employees performing administrative
or technical tasks. In this connection, we would point out that
the training courses (be they basic or concerned with updating and
qualification) of the personnel of the corps (at all levels, from
the lowest to inspectors) now include the teaching of communication
as an instrument for facilitating relations with prisoners, Italian
and European constitutional law concerning protection of the rights
of prisoners, the United Nations and European rules for the treatment
of prisoners.
43. As
regards the subject area "The penitentiary system", knowledge of
the rules and regulations in force is now supplemented by an effort
to sensitize the staff to all aspects connected with the treatment
of foreign prisoners, paying particular attention to the insertion
difficulties they experience during detention (in terms of language,
relations with their families, work within the prison, etc.) and
relating this to the possibility of being granted the benefits envisaged
by law (e.g. leave, work outside the prison, measures alternative
to imprisonment, etc.) and to the moment when they leave the penitentiary.
44. It
should also be noted that, within the context of basic training
but with reference to other roles within the Administration, it
has become the practice to hold meetings and/or seminars on this
theme, which now constitutes an integral part of the teaching programmes.
Moreover, training courses and interdisciplinary seminars have been
held in areas where the problem of the treatment of foreign and
non-Community prisoners is more acute on account of the large number
of such prisoners, in collaboration with the Regions and/or associations
working in this sector. Nor should it be forgotten that, not least
with a view to avoiding episodes of discrimination or violence against
prisoners, penitentiary police personnel are now subjected to a
very thorough psychological examination before being accepted into
the corps.
F. Prevention and investigation of behaviour
contrary to the principles of the Convention
1. Members of the State Police
45. Particular
attention has to be paid to the situation of State Police personnel
penally prosecuted for crimes of ill-treatment, including hitting
and causing personal injuries, committed in abuse of their power
or violation of the duties inherent in a public function (article
61, paragraph 9, Penal Code). On the basis of data recently provided
by the competent authorities, it has been found that in the last
four years 354 such penal proceedings were begun as a result of
which 13 disciplinary proceedings were instituted with the following
results: 5 written reprimands; 5 monetary fines; 2 suspensions from
service; 1 filing of the acts. In this connection, it should be
specified that whenever a person performing a role within the Public
Safety Administration is subjected to both disciplinary and penal
proceeding for the same act, article 11 of Presidential Decree No.
737/1981 requires that disciplinary proceedings be suspended until
the penal proceedings have been concluded and the sentence can no
longer be appealed against.
46. At
the end of 1997, the situation of the said 354 penal proceedings
is as follows:
5 cases have been
dismissed by a decree that the acts be filed;
147 cases have been
sent for trial;
80 cases terminated
with a favourable sentence ("not guilty"), of which 18 are not
yet definitive (because they have either been appealed against
or the deadlines for appeal have not yet expired);
31 cases terminated
with an unfavourable sentence ("guilty"), of which 26 are not
yet definitive (because they have either been appealed against
or the deadlines for appeal have not yet expired);
38 cases terminated
with an unfavourable sentence ("guilty"), including 13 cases
in which the appeal deadlines have not yet expired; 15 cases
are in the appeal stage; 10 cases have become definitive.
All the
remaining penal proceedings are still pending before the judiciary
authorities in the examination phase.
47. Some
proceedings instituted against members of the State Police should
be cited here as examples, mainly with a view to underscoring that
the action of police personnel must always be inspired by full respect
for human rights if for no other reason than to avoid penal and
disciplinary proceedings.
A Deputy
Superintendent of the State Police in service at Foggia police station
(the provisions of Law No. 675 of 31 December 1997 on the privacy
of personal data prevent his name from being revealed) was arrested
in execution of an order of the G.I.P. (Preliminary Examination
Judge) because he was being investigated for the crimes of abuse
of office, committing a falsehood in a public act, causing injuries,
kidnapping of a person and private violence. In particular, he was
said to have repeatedly and violently beaten and threatened a young
man who had been taken to his office for questioning by the judicial
police. For these acts he was suspended from service pending the
result of the penal proceedings. Following a violent quarrel with
a non-Community citizen armed with a knife, a former auxiliary policeman
(State Police), in service at the Railway Police Training Centre
in Bologna, fired a shot from his service pistol, hitting the other
man in the face. He was suspended from duty for grave disciplinary
infraction and subsequently released from the service because his
application to be admitted to the course for enrolment as a regular
policeman was refused owing to the conduct he had displayed in the
incident.
2. Carabinieri
48. As
regards charges brought against members of the Carabinieri, see
paragraph 66 below and annex 14.
3. Penitentiary Police
49. With
respect to the members of the Penitentiary Police against whom penal
and/or disciplinary proceedings were opened for acts committed against
prisoners, the situation can be summarized as follows. In the period
1994-1997 18 penal proceedings were instituted, involving a total
of 122 warders, for crimes against prisoners that can be comprised
in the concept of torture (ill-treatment, inhuman or degrading treatment,
etc.). Specifically the charges brought against these men were as
follows:
98 for personal
injuries (Penal Code, art. 582);
16 for abuse of
office (art. 323);
6 for use of violence
or threats to force the committing of a crime (art. 611);
25 for beating (art.
581);
77 for abuse of
authority against arrested or detained persons (art. 608);
11 for private violence
(art. 610);
5 for abuse of the
means of discipline or correction (art. 571).
50. At
the moment 6 of the said penal proceedings are still pending, while
the remaining 12 terminated as follows:
7 with a "not-guilty"
verdict at first instance;
1 with a "not-guilty"
verdict on appeal;
1 with a decree
of dismissal by filing;
2 with a "guilty"
verdict at first instance;
1 with a "guilty"
verdict at cassation.
51. Lastly,
it should be mentioned that 10 disciplinary proceedings were opened
in 1997 in connection with episodes of violence against prisoners
and which led to five dismissals from the service and five suspensions.
G. Training of medical personnel
52. As
far as health aspects are concerned, the Committee recommended the
drawing up of teaching and training programmes for medical personnel
on how to recognize injuries, ill-treatment and/or degrading treatment
attributable to the crime of torture.
53. The
crime of torture implies not only the identification of physical
lesions, but also of psychological ill-treatment, the effects of
which are often permanent. The Italian system, therefore, provides
for recognition of the damage done to the person, though without
specifying the peculiar term "torture", and the medical personnel
- quite apart from any juridico-penal evaluations - are therefore
capable of recognizing all the types of injury or ill-treatment
of persons, including those amounting to acts of torture. The degree
course in medicine and surgery makes this possible, thanks to the
study of some fundamental subjects (chemistry, physics, anatomy,
pathological anatomy, medical pathology, clinical medicine, clinical
surgery, clinical pharmacology, toxicology, forensic and insurance
medicine, clinical neurology, clinical psychiatry, etc.). Doctors
have the knowledge and the ability to assess both physical and psychological
lesions, and to prescribe the necessary pharmacological, surgical
and/or rehabilitation therapy and, lastly, the forensic medicine
diagnosis of the damage sustained, which can subsequently be attributed
to a possible "crime of torture".
54. In
particular, the study courses leading to a medical degree include
the teaching of forensic medicine, "the forensic medical evaluation"
of the "damage to the person" in whom there is indicated a "change
for the worse of the normal equilibrium of the body or the psyche,
or of the anatomic integrity of the organism, either as a whole
or only of a part thereof". In this sense, the sustained damage
can be divided into:
(a) Transitory
damage (when the organism, either by its own means or with the help
of appropriate cures, succeeds in re-establishing its own normal
condition);
(b) Permanent
damage (when, in the absence of restitutio ad integrum, there
is instituted a different morphologico-functional state on a new
basis). In some cases the damage may consist of so grave a modification
of the person as to ultimately be incompatible with life, that is
to say, the death of the subject, possibly by suicide.
55. In
clinical practice, before the doctor can arrive at an adequate therapeutic
intervention, he has to establish a diagnosis and carry out an etio-pathogenetic
study of the case, that is to say, ascertain the existence of a
lesion or an illness and determine its nature, though without necessarily
ascertaining its origin; on the contrary, observation of these data
represents the point that unites clinical and forensic medicine.
It is inherent in this concept that the Italian doctor attaches
importance to any kind of lesion and/or illness that can be attributed
to causes that are comprised in the crime of torture.
56. Ascertainment
of the existence of a lesion or its after-effects and the inquiry
into its causes are thus both necessary to arrive at a complete
evaluation of the damage; such evaluation can be performed for a
corpse as well as for a living person. Nevertheless, when the fact
of the lesion cannot be referred to a juridical interest, it is
irrelevant from the point of view of forensic medicine.
57. The
forensic medical evaluation of the damage to the person therefore
comprises the ascertainment of the reality and the nature of the
damage, and the ascertainment of the cause of the damage. The causal
relationship between the damage and the presumed cause represents
one of the most delicate tasks of the medical practitioner in general
and, more particularly, the forensic doctor, specialized in forensic
medicine and forensic psychiatry.
58. Though
what has just been said represents a small part of the teaching
of forensic medicine, which constitutes a fundamental subject of
the study course that in Italy leads to a degree in medicine and
surgery, it also illustrates well the framework of the specific
basic preparation of Italian medical practitioners, highlighting
their capacity to arrive at a correct diagnosis of all the psycho-physical
lesions, including those that can be ascribed to the crime of torture,
prescribing and implementing, moreover, a purposeful and adequate
pharmacological and rehabilitation therapy.
59. Furthermore,
the medical personnel - duly qualified and specialized in medical
disciplines that are closely connected with the problems posed by
the Convention against Torture - who daily perform their working
activities in institutions where they are most likely to encounter
injuries and damage to persons acquire a particular professional
experience in this matter. Particular reference is made here to
the forensic physicians at the forensic and university medical institutes,
the penitentiary medical police of the penitentiary institutions,
the doctors of the first-aid posts at hospitals and universities,
and the military doctors of both the Health Corps (Corpo di sanità)
of the Italian Army and the Italian Red Cross - Military Corps.
60. While
stressing that the level of specific preparation of the doctors
who are called upon to ascertain the damage and its cause is very
high, the Italian Government, and especially the Ministry of Health,
bearing in mind the comments made by the Committee and article 10
of the Convention, is decidedly in favour of an intervention aimed
at sensitizing the medical personnel. It is proposed to organize
a seminar for the purpose of examining and discussing the various
aspects of recognizing lesions suffered by persons, and this is
currently in the planning phase.
H. Situation in the prisons
61. A basic
element fundamental for a complete overview of the situation of
Italian penitentiary institutions today, especially of the size
and the conditions of the prison population they contain, is the
excessive number of prisoners as compared with the effective capacity
of the available prison structures, which is on the order of 50,000
persons.
62. The
manner in which the overcrowding problem continues to condition
the work of the penitentiary personnel is altogether evident, since
it creates conditions of promiscuity and makes it difficult for
the administrations to implement the treatment programmes prescribed
by law. A bill to address measures that will deflate the prison
population is being examined by Parliament; if passed, it would
enhance the possibility of adopting alternative measures for the
existing prison population.
63. A positive
feature is the ratio of persons in preventive custody (i.e. who
have not yet stood trial or whose sentence is not yet definitive)
to prisoners serving a definitive sentence: the percentage of the
former decreased from 40.7 to 38.1 per cent in 1997 while that of
the latter increased from 56.6 to 59.4 per cent. But the ratio is
still very high, not least on account of the principle of the presumption
of innocence, so that a person can be officially considered as condemned
only when the sentence can no longer be appealed against; an appeal
implies three instances of judgement.
64. In
this connection the Court of Cassation recently put its views on
record, deeming the possibility of immediately executing any charge
that has become definitive either in relation to responsibility
or the determination of the punishment as an indispensable instrument
for the purposes of streamlining the procedural iter. The
jurisdictional organs handling both civil and penal cases have adopted
this suggestion with a view to accelerating the procedures already
in use (in this connection the civil sector has recorded a slight
downturn in the number of pending cases, owing to the fact that
the Justices of the Peace were able to examine about 242,000 cases
in the period under consideration).
65. The
conclusions drawn by the Committee against Torture after examination
of the second periodic report submitted by Italy (A/50/44, paras.
146-158) have been made the object of careful consideration by the
Italian Government both on the occasion of the observations sent
to the Committee in 1995 and in the present report.
66. The
Committee expressed concern in connection with the persistence of
cases of ill-treatment in prisons inflicted by warders, with a tendency
towards racist attitudes vis-à-vis non-Community foreigners and
members of minorities. As already pointed out in the observations,
this concern seems to have its origin in the denunciations that
have been made to some non-governmental organizations. The Italian
Government has sought to make a closer examination of the foundation
of the Committee's conclusions. In particular, to give but one example,
they asked the Carabinieri to provide a detailed and analytical
statement of all the cases of alleged ill-treatment of arrested
or controlled persons in the period 1994-1997. Quite independently
of the credibility of the alleged facts, this survey took into consideration
all the complaints presented against Carabinieri on these grounds.
As can readily be seen from annex 14, the Corps pinpointed 276 such
episodes, 37 of which involved foreign citizens either from within
the EC (three cases) or from outside (the remainder). The survey
highlights a circumstance that is already well known to both the
competent authorities and the non-governmental organizations: foreign
citizens, especially those from outside the Community who are less
familiar with the guarantees offered by the Italian legal order
and who sometimes find themselves in Italian territory only for
a very brief time, are inclined to turn to NGOs to complain about
alleged ill-treatment rather than avail themselves of the ordinary
juridical channels. The contrary seems to happen in the cases involving
Italian citizens. It thus happens that some organizations, including
some of the most qualified in the sector under consideration, receive
letters of denuncia-tion almost exclusively from foreign citizens.
The picture that these organizations offer to public opinion when
they publish the resulting data therefore offers a somewhat distorted
version of reality, highlighting almost exclusively episodes of
alleged ill-treatment of foreigners, and this quite irrespective
of the foundation or credibility of the cases exposed.
67. In
connection with the Committee's concern regarding the disproportion
between the gravity of some of the episodes and the sentences inflicted
upon those responsible for them, some detailed information elements
have already been provided in the observations. But there are absolutely
no grounds to justify the belief that the humanitarian norms governing
the treatment of prisoners have ever been suspend-ed, not even temporarily.
68. As
regards the recommendations formulated by the Committee:
(a) Both
the observations and the present report contain ample information
about the Italian penal system and the general orienta-tion of the
Italian Government in favour of inserting the crime of torture in
the Italian penal system. Nevertheless, given the ample safeguards
already provided by the Italian penal order, which have been extensively
illustrated, a change in this sense does not seem necessary. Moreover,
as is well known, there are very many juridical systems, especially
in the Western countries, in which "torture" does not exist as a
crime;
(b) The
text of the present report sets forth and documents the guaranteed
right of any prisoner to avail himself of the assistance of a medical
practitioner enjoying his confidence;
(c) In
previous reports, as in the present one, attention has been drawn
to various initiatives - either already implemented or now being
planned - for training the personnel of the forces of order, including
those of the Penitentiary Police (warders). Further, as noted in
the present report, the Ministry of Health is now orientated in
favour of promoting specialized training courses also for medical
personnel, even though this initiative does not seem essential for
the purposes of implementing the principles of the Convention.
II. INFORMATION ABOUT SITUATIONS AND INDIVIDUAL
CASES OF ALLEGED ILL-TREATMENT
A. General observations
69. A more
detailed examination of the penal proceedings still in progress
against individuals should preferably be preceded by some considerations
of a general character regarding the fundamental principles of the
Italian system of justice, some of which are of sufficient importance
to be embodied in the Constitution, paying particular attention
to the various trial phases.
70. Underlying
the Italian order is the principle of the obligatory nature of penal
action (article 112, Constitution), the principle of the presumption
of innocence (art. 27), the principle of the independence of judges
from every other power (art. 104), the principle that judges are
subject only to the law (art. 101), the principle of three instances
of trial, and the principle of the irrevocability of sentences except
in the cases of rehearing expressly envisaged by law (arts. 629-647,
Code of Penal Procedure). Under such a system all denunciations,
no matter by whom or against whom they may be made, must be investigated
by the Public Prosecutor to ascertain the facts and the responsibilities.
71. With
a view to guaranteeing the rights of the persons involved, the preliminary
phase of the investigations is governed by the principle of secrecy
vis-à-vis third parties. This provision may not be violated in any
manner or wise, and penal sanctions are envisaged in case of violation.
Secrecy is maintained until a person is actually committed for trial,
after which there commences the phase character-ized by publicity,
and this for the specific purpose of guaranteeing generalized control
over the correct use of the trial instruments in penal cases.
72. Coming
back to the investigation phase, in the event of the Public Prosecutor
requesting filing (dismissal) of the case, the Preliminary Examination
Judge (G.I.P.) has the power to require further investigations to
be carried out whenever he is of the opinion that what has already
been done is not sufficient. When determining whether further inquiries
should be made, the judge takes due account, inter alia,
of the observa-tions and requests that the offended party has the
right to submit in opposition to the dismissal request. Indeed,
in accordance with article 408 of the Code of Penal Procedure, the
offended party may ask to be notified in the event of such a request
and lodge opposition thereto. The filing request may be granted
when the information alleging the crime is unfounded or when the
acquired elements are not sufficient to sustain the charge in judgement
(article 125 disp.att.CPP).
73. Effective
performance of the investigations by the Public Prosecutor is subject
to the control of the Attorney-General (Procuratore generale)
(article 127 disp.att.CPP) to whom the Public Prosecutor's secretariat
must each week send a list of crimes committed by known persons
in respect of which there has neither been a penal action nor a
request for dismissal within the deadline envisaged by law or as
extended by the judge for just cause. This control assumes the concrete
form of the power enjoyed by the Attorney-General, in accordance
with article 412 of the Code, to extend his competence to a particular
case.
74. Once
a person has been committed for trial, it should be stressed that
the case is heard in public and that both the public at large and
the information media are there-fore in a position to monitor the
proceedings. At the end of the public debate, when all the evidence
requested by both the prosecution and the defence has been admitted
and heard, the judge will pronounce a guilty sentence only when
positive proof of guilt has been provided, because the presumption
of innocence has to prevail in all cases of doubt. All first-instance
sentences may be appealed against, first in the Court of Appeal
and then in the Court of Cassation.
75. The
system just outlined, albeit somewhat schematically, is one that
undoubtedly provides an extremely high level of protection for both
the accused and the offended party and, in any case, sufficient
so as to ensure that - as a general rule - the end of ascertaining
the truth, no matter what it may be, is pursued. Once the guilt
of the accused has been determined, the Italian magistrature imposes
- with due motivation - such punishments as are deemed appropriate,
in accordance with the parameters established by article 133 of
the Penal Code.
B. Individual cases
1. Somalia
76. Thorough
and complex investigations are currently being carried out by various
Italian judicial authorities in connection with the acts of violence
committed by Italian soldiers in Somalia. Four such investigations
are currently in progress at the Public Prosecutor's Office attached
to the Court of Livorno.
77. As
regards the proceedings for alleged torture suffered by a Somali
man arrested at Jhoar and the alleged rape of a Somali woman by
soldiers at a roadblock in Mogadishu, a probatory hearing was arranged
so as to have the testimo-nies of the victims and a witness collected
directly by the judge. Expert examinations are being carried out
to ascertain the after-effects of the violence on the victims and
also to see whether they corresponded to the photographs published
by a weekly journal. The expert work is now in progress. Investigations
are also being continued in the other two proceedings.
78. The
Public Prosecutor's Office attached to the Court of Milan, for its
part, is diligently continuing its investigations regarding an alleged
case of carnal violence committed by an Italian soldier in Mogadishu.
79. By
means of a decree dated 9 February 1997, the Preliminary Examination
Judge of the Court of Leghorn ordered that the case based on the
facts denounced by Abdi Hasn Addò be filed. Addò had accused Italian
soldiers of having shot and killed three Somalis in a car on 3 June
1993. But the investiga-tions showed that on the day in ques-tion
the soldiers had been engaged in a military operation known as "Illach
26" that was taking place in another part of Somalia from that indicated
by Addò.
2. Italian citizens who have disappeared in Argentina
80. On
28 April 1997 the Public Prosecutor attached to the Court of Rome
asked that seven soldiers be put on trial on charges of voluntary
homicide and kidnapping numerous Italian citizens resident in Argentina.
Since the taking of evidence is still in progress, the prelimi-nary
hearing for receiving the expert reports has been fixed for 17 March
1998.
3. Secondigliano prison
81. As
previously reported, a case against 55 members of the Penitentiary
Police is being heard before the Naples Magis-trate's Court. At
the last hearing the case was adjourned until 23 March 1998. The
warders are accused of the crime, defined by article 608 of the
Penal Code, of having repeatedly subjected numerous prisoners to
punishment measures not permitted by law, and also of the crimes
of hitting (art. 581) and inflicting injuries (art. 582).
4. Marcello Alessi
82. Marcello
Alessi, a prisoner at the San Michele Prison, Alessandria, lodged
a complaint in December 1992 for alleged ill-treatment he claims
to have suffered at the hands of an officer of the Penitentiary
Police. Following an examination of the detailed statements made
by Alessi and the accused member of the Penitentiary Police, Alessi
was found guilty of the crime of violence against a public official
(article 336, Penal Code) and was absolved of the crime of insulting
(art. 341). Since the accused has not lodged an appeal with the
Court of Cassation, the sentence became definitive on 25 February
1997. As already communicated in the note dated 27 February 1998,
the proceedings against the warder pending before the Alessandria
Magistrate's Court have been adjourned to the hearing on 25 March
1998.
5. Francesco Matteo
83. The
Public Prosecutor attached to the Court of Varese asked on 18 March
1997 that the captain of the Customs Corps be committed for trial
for the voluntary homicide (article 575, Penal Code) of Francesco
Matteo, together with the young man who had accompanied the victim,
in the latter's case on a charge of violence against a public official.
We have been informed by the judicial authorities that the preliminary
hearing has been fixed for 13 May 1998.
6. Salvatore Messina
84. By
means of a sentence dated 18 February 1998, the Court of Palermo
held the two policemen to be guilty of the crimes of causing bodily
and other harm to Salvatore Messina and, with the attenuation provided
in article 442 of the Code of Penal Procedure, sentenced one to
eight months of imprisonment and the other to six months of imprisonment,
and indemnification of the civil party to the case.
7. Grace Patrick Akpan
85. Detailed
information on this case has been sent to the Special Rapporteur
on contemporary forms of racism, racial discrimination, xenophobia
and related intolerance, Mr. Maurice Glélé-Ahanhanzo. On 12 December
1996, the Judge for Preliminary Investigation of the Court of Catanzaro
committed the two policemen to stand trial on a charge of causing
harm to the detriment of Grace Akpan, while Akpan herself was charged
with the crimes defined by articles 337-341-582-651, Penal Code.
The trial has been adjourned to the hearing of 26 October 1998.
8. Abdelwahab Ben Moghrem
86. Abdelwahab
Ben Moghrem lodged a complaint with the Magistrate's Court of Voghera
in September 1995, alleging that he had suffered ill-treatment and
had been made the object of insults of a racist type by two Carabinieri
who had stopped him for an identity check. The Preliminary Examination
Judge of the Court of Voghera filed (dismissed) the proceedings
against the two Carabinieri, charged with causing bodily harm, offering
a detailed and exhaustive explanation for his decision.
9. Edward Adjei Loundens
87. Detailed
information on this case has also been sent to Mr. Glélé-Ahanhanzo.
The complaint lodged by Edward Loundens has been transmitted to
the Prelimi-nary Examination Judge with a request for filing (dismissal).
The Judge's decision is now awaited.
10. Ymbi Nsambi Okoka
88. The
Court of Savona found Ymbi Nsambi Okoka guilty of the crime of having
calumniated the two Carabinieri and, finding that the attenuations
prevailed over the aggravating circumstances of the charge, sentenced
him to one year and five months of imprisonment, suspending execu-tion
of the sentence. In the absence of an appeal by the accused, this
sentence became definitive on 18 April 1997. As shown in the sentence,
the doctor, called by the Carabinieri of Finale because Okoka had
complained of hematuria, while confirming that the accused was suffering
from lumbago on the left side, had not found any sign of the lesions
that should have been present if the accused, as stated in his complaint,
had recently been beaten while naked. It was also ascertained that
the doctor at the Albenga Hospital, where Okoka had gone at 1 p.m.
on 6 June 1994, a little while before lodging his complaint, failed
to find any objective signs of injury on the body and the arm, where
the accused complained of widespread pain, and attributed the hematuria
to a large vesical calculus, probably due to some tropical disease.
Okoka had therefore intentionally accused the Carabinieri of acts
he knew they had not committed.
11. Giancarlo Malatesta
89. Giancarlo
Malatesta was committed to stand trial on a charge of calumny against
the policemen. The case has been adjourned to the hearing of 13
October 1998.
1. Ministry
of Justice - Statistics
1.1 Situation
in Italian prisons at 27 January 1998
1.2 Foreign
prisoners
2. Communication
of Ministry of Justice dated 9 July 1994
3. Communication
of Ministry of Justice dated 16 January 1998
4. Magistrate's
Court of Voghera - Filing Decree
5. Court
of Varese - Request for committal to trial
6. Court
of Savona – Sentence dated 30 January 1997
7. Public
Prosecutor's Office, Catanzaro - Request for commitment to trial
8. Public
Prosecutor's Office, Leghorn - Request for dismissal by filing
9. Public
Prosecutor's Office, Leghorn - Somalia case
10. Public
Prosecutor's Office, Milan - Somalia case
11. Public
Prosecutor's Office, Leghorn - Somalia case
12. Court
of Appeal of Turin - Sentence dated 9 January 1997
13. Court
of Palermo - Sentence dated 18 February 1998
14. Survey
carried out by the Corps of Carabinieri of cases of ill-treatment
complaints
* The
annexes may be consulted in the files of the Office of the High
Commissioner for Human Rights.