Pardon

The pardon is one of the oldest institutions of criminal law, which appeared simultaneously with state power and the justice system. It was already enshrined in the laws of Hammurabi ^[1] . It was widely used by monarchs (including Russian ones) throughout all periods of history ^[2] .

Due to the fact that the right of pardon was often exercised by the monarchs excessively broadly, this often led to impunity for criminals who had connections at court. Therefore, during the Enlightenment, the right of pardon was criticized by many prominent thinkers (for example, Kant and Voltaire ) ^[3] . Cesare Beccaria wrote of a pardon:

As leniency is reduced, mercy and forgiveness become less necessary. Happy is the nation in which they are considered harmful. So, mercy is a virtue, which sometimes complements the circle of duties assumed by the throne. She should not have a place in the perfect legislation, where the punishments are moderate, and the court is righteous and swift. This truth will seem harsh to someone who lives in a country with an disordered criminal law system. Therefore, in this country, the need for petition and mercy directly depends on the absurdity of laws and the severity of sentences. Forgiveness and mercy are the most beloved prerogative of the throne and a welcome attribute of the supreme power .... However, given that mercy is the virtue of the legislator and not of law enforcement, that this virtue should be manifested in all its splendor in the code, and not in special court decisions, then showing people that crimes can be forgiven and that punishment is not a necessary consequence, means to create an illusion of impunity in them and make them believe that if forgiveness can be achieved, then the execution of a sentence to an unforgiven is more an act of violence by the authorities than the result of justice. What can be said about the pardon by the sovereign, that is, about the concession by the guarantor of public safety to a private person who has violated the law? Only that this personal act of unenlightened charity is given the power of an act of state authority decreing impunity.

- Beccaria C. On crimes and punishments. - M .: Infra-M, 2004 .-- S. 155.

These considerations played a role in the adoption of the first bourgeois criminal code (French Criminal Code of 1791), in which the institution of pardon was not included as contrary to the principle of equal rights of citizens ^[4] .

Despite this, the institution of pardon is preserved in most countries of the world and is enshrined in international acts. So, the International Covenant on Civil and Political Rights in Part 4 of Art. 6 contains a provision that all those sentenced to death have the right to ask for a pardon, and that a pardon or commutation of the death penalty can be granted in all cases.

As a rule, the head of state is vested with the constitutional right of pardon, but in some federal states the head of the subject of the federation also has it (for example, in the United States for the misconduct located in the jurisdiction of a state, the governor of the state is vested with the right of pardon) ^[5] .

The grounds for applying the pardon may be considerations of humanity or repentance of the convicted person, but often the application of the pardon is political (for example, in December 2000, E. Pope , who was convicted of spying for the United States for 20 years in a maximum security colony, was pardoned ; as a basis in the presidential decree, not only the humanity and state of health of the convict was mentioned, but also “the high level of relations between the Russian Federation and the USA”) ^[6] .

Pardon is usually applied to persons sentenced to the most severe types of sentences. As a result, these types of punishments are replaced by milder ones. However, other consequences of pardon are possible, up to the complete release from punishment. So, according to the legislation of the CIS countries, a pardoned person can be released from further serving a sentence or a sentence imposed on him can be reduced or replaced by a milder type of punishment. A person who has served a sentence may be convicted by an act of pardon ^[6] .

The legislation of individual states has particularities regarding the scope and procedure of pardon. So, according to Art. 29 of the Constitution of Iceland, the president of this state is given the right not only to pardon convicted persons, but also to stop criminal prosecution in pre-trial stages, if there are good reasons ^[7] . In Italy, there are two types of pardons: indulto and grazia : the first is granted by parliament by passing a law approved by a two-thirds majority of both houses of parliament; the right to use the second belongs to the president ^[8] . According to the Swiss Constitution (Art. 173), the right of pardon is not granted to the president, but to parliament.

In some countries (Belarus, Turkmenistan, Uzbekistan, as well as the United Kingdom and the United States), a pardon may be conditional on exemption from punishment: when a pardoned person commits a new crime for a certain period of time, the punishment for the previous crime is restored, and the punishment for the new crime is added to it ^{[ 6]} .

In Russia, the right of a convicted person to ask for pardon is enshrined in the Constitution , and the right of pardon belongs to the president of the country. In practice, in the 2010s, pardon was applied in Russia extremely rarely - no more than 10 cases a year and sometimes for political purposes. For example, in 2016, a Ukrainian pilot, Nadezhda Savchenko , was pardoned in violation of the pardon procedure in order to exchange two Russian citizens convicted in Ukraine .

Basic Information

The main provisions on pardon are contained in the Constitution (Articles 50, 71 and 89), the Criminal Code (Article 85), the Criminal Executive Code (Article 176) of the Russian Federation.

Decree of the President of the Russian Federation dated December 28, 2001 No. 1500 “On commissions on questions of pardon in the territories of the constituent entities of the Russian Federation” and the Statute on the Procedure for Consideration of Petition for Clemency in the Russian Federation ^{[9] are} specifically devoted to pardon ^.

The constitution does not disclose the concept of “pardon”. She only:

• transferring the rights and freedoms of man and citizen, recognizes the right of each convicted person to ask for pardon or commutation of punishment ( Article 50, part 3 );
• describing the federal structure , it refers the pardon to the jurisdiction of the Federation ( Article 71, paragraph “o” )
• transferring the powers of the President , include the implementation of a pardon ( article 89, paragraph c ).

It should be noted that during the formation of federalism in Russia there were attempts to delegate the exercise of powers to pardon the heads of constituent entities of the Russian Federation. Thus, the Agreement between the Russian Federation and the Republic of Bashkortostan dated 03.08.1994 “On the delimitation of objects of jurisdiction and mutual delegation of authority between the bodies of state power of the Russian Federation and bodies of state power of the Republic of Bashkortostan” contains a provision according to which the pardon of persons convicted by the courts of the Republic of Bashkortostan was administered Republic of Bashkortostan. The Constitution of the Republic of Bashkortostan until 2002 contained paragraph 19 of Art. 95, according to which the President "exercises the right to pardon citizens convicted by the courts of the Republic of Bashkortostan." Similar provisions were contained in the Agreement between the Russian Federation and the Republic of Tatarstan dated 02.15.1994 “On the delimitation of objects of jurisdiction and mutual delegation of authority between state authorities of the Russian Federation and state authorities of the Republic of Tatarstan”. However, the Constitutional Court of the Russian Federation, in Resolution No. 10-P of June 7, 2000 “On the case on the constitutionality of certain provisions of the Constitution of the Altai Republic and the Federal Law“ On the General Principles of Organization of Legislative (Representative) and Executive Government Agencies of the Subjects of the Russian Federation ”,” indicated that “... treaties, agreements cannot be transferred, excluded or otherwise redistributed the subjects of competence of the Russian Federation established by the Constitution of the Russian Federation and correspondingly the existing powers of the federal executive bodies. ” The Supreme Court of the Russian Federation by ruling of April 17, 2001 No. 49-G01-23 declared the granting of pardon powers to the President of Bashkortostan that is not in accordance with the Constitution of the Russian Federation and federal legislation. On December 3, 2002, the relevant provisions were deleted from the Constitution of Bashkortostan.

The concept of “pardon” is disclosed in Article 85 of the Criminal Code of the Russian Federation (which is also called: “Pardon”) as follows: “With the act of pardon, a person convicted of a crime can be released from further serving a sentence or the sentence imposed on him can be reduced or replaced milder type of punishment. A criminal record may be removed from a person who has served a sentence. ” Unlike previous legislation, there is no provision for exemption from criminal liability and replacement of imprisonment with a suspended sentence of pardon ^[10] . A pardon cannot cancel the consequences of already executed punishments (for example, a fine or deprivation of a special, military and honorary title, class rank and state awards ). A pardon also does not exempt a person from civil liability for harm ^[11] .

In addition, this article indicates that the pardon is carried out in relation to an individually defined person, and following the 89th article of the Constitution, the pardon is referred to the jurisdiction of the President of the Russian Federation ^[10] .

Unlike amnesty , a pardon in Russia applies only to persons against whom there is a court verdict that has entered into legal force. In addition, the act of pardon is not normative: it is an act of application of law. This act is a direct legal basis for applying the consequences of a pardon; a decision by another body is not required.

The law does not contain restrictions regarding the gravity of the crime, the characteristics of the personality of the offender, his behavior during the period of serving the sentence and serving a certain period of punishment before pardon ^[10] .

At the same time, Decree No. 1500, which defines the procedure for considering applications for clemency, notes that clemency, as a rule, does not apply to the following categories of persons ^[9] :

• who committed a deliberate crime during the period of probation imposed by the court for probation;
• maliciously violating the established procedure for serving a sentence;
• previously released from serving a sentence on parole;
• previously released from serving the sentence under an amnesty;
• previously released from serving a sentence by an act of pardon;
• which previously replaced the punishment imposed by the court with a milder punishment.

Developing the provision of Article 50 of the Constitution, Article 176 of the Penal Code of the Russian Federation , introduced by the Federal Law of 08.12.2003 No. 161-ФЗ, entitled "Procedure for Applying for Clemency", determines that "the convict shall file a petition for clemency through the administration of the institution or the body executing the punishment. "

In the 1990s, pardon was widely applied to prisoners sentenced to death as part of a policy of gradually reducing the use of this type of punishment. By way of pardon, the punishment for these persons was commuted to life imprisonment or long terms of imprisonment. Art. 59 of the Criminal Code provides that the death penalty by pardon may be commuted to life imprisonment or imprisonment for a term of 25 years. Currently, not a single person sentenced to death in penal institutions is detained.

Statistics

Until December 2001, the Commission on Clemency under the President of the Russian Federation ^[13] was in force in the Russian Federation (created by decree of the President of the Russian Federation No. 17 ^{[12] of} January 12, 1992 ⁾ . The activities of this commission were criticized by scientists and the public in connection with an excessively large scale (1992 - 2726 convicts; 1995 - 4988; 1999 - 7418; 2000 - 8650), as well as the release from punishment of persons convicted of serious crimes (only for In 2000, 2,680 people convicted of premeditated murders were pardoned; 2,188 - for causing serious bodily harm; 18 - for kidnapping; 14 - for banditry) who violated the regime of serving their sentences and repeat offenders ^[10] . As a result, the commission was abolished by presidential decree of December 28, 2000 ^[9] , which established pardon commissions on the territory of the constituent entities of the Russian Federation. The decree also approved the Regulation on the procedure for considering applications for clemency ^[9] . Vladimir Putin, dismissing the commission, explained his decision as follows: “They only regretted, but it was necessary not only to regret” ^[14] .

Currently, pardon (in contrast to amnesties of a massive nature) is considered as an exceptional measure ^[15] . In modern Russia, after the liquidation of the Commission, pardon in Russia has become a rare occurrence - no more than 10 people a year ^[14] . For example, in 2014, Vladimir Putin pardoned 5 people (with the number of applications filed 4.7 thousand ^[16] ), and in 2015 - only 2 people ^[14] . Human rights activists point to the inadequate application of pardon and the bureaucratization of his procedure ^[16] .

Clemency Procedure

Decree No. 1500, issued by President Putin on December 28, 2001 ^[9] , defined a multi-stage procedure for considering a pardon. In accordance with it, the application for clemency must go through the chain of jurisdiction:

• the administration of the institution or body executing the punishment, or the pre-trial detention center;
• territorial body of the penal system;
• pardon commission on the territory of a subject of the Russian Federation (presents a conclusion on the appropriateness of applying the pardon act);
• the highest official of the subject of the Russian Federation (introduces to the President of the Russian Federation an idea of ​​the appropriateness of applying the act of pardon);
• President of the Russian Federation.

Persons who have already served their sentences and apply for clemency in the form of removing a criminal record, send their petition directly to the commission on clemency issues.

A petition for clemency is filed in writing.

Clemency Commissions

The main tasks of the pardon commission on the territory of a subject of the Russian Federation are:

• preliminary consideration of applications for clemency of convicts serving sentences in penitentiary institutions located in the territory of a constituent entity of the Russian Federation, convicts held in pre-trial detention centers, involved in investigative actions or in court proceedings, as well as persons who have served a sentence imposed by a court and having an unexpunged criminal record;
• preparation of conclusions on pardon materials for further submission to the highest official of the subject of the Russian Federation (head of the highest executive body of state power of the subject of the Russian Federation);
• exercising public control over the timely and correct execution on the territory of a subject of the Russian Federation of decrees of the President of the Russian Federation on pardon issues, as well as on the conditions of detention of convicts;
• preparation of proposals for improving the efficiency of institutions and bodies of the penal system, other state bodies located in the territory of a constituent entity of the Russian Federation on pardoning convicts, as well as social adaptation of persons who have served their sentences.

The composition of the pardon commission on the territory of a constituent entity of the Russian Federation and the chairman of the commission shall be approved by the highest official of the constituent entity of the Russian Federation. The commission consists of at least 11 people. Members of the commission may be citizens of the Russian Federation who have higher education, are respected by citizens and have an impeccable reputation. The decision of the commission is considered competent if at least half of the members of the commission are present at its meeting. Решения принимаются большинством голосов присутствующих на заседании членов комиссии. При равенстве голосов членов комиссии голос председателя комиссии является решающим. Состав комиссии обновляется на одну треть один раз в два года. Не менее двух третей состава комиссии формируется из представителей общественности. Члены комиссии осуществляют свою деятельность на общественных началах.

Комиссия не позднее чем через 30 дней со дня получения ходатайства о помиловании представляет заключение о целесообразности применения акта помилования в отношении осужденного высшему должностному лицу субъекта Российской Федерации

При рассмотрении ходатайства о помиловании комиссией принимаются во внимание:

• характер и степень общественной опасности совершенного преступления;
• поведение осужденного во время отбывания или исполнения наказания;
• срок отбытого (исполненного) наказания;
• совершение осужденным преступления в период назначенного судом испытательного срока условного осуждения;
• применение ранее в отношении осужденного акта амнистии, помилования или условно-досрочного освобождения от наказания;
• возмещение материального ущерба, причиненного преступлением;
• данные о личности осужденного: состояние здоровья, количество судимостей, семейное положение, возраст;
• другие обстоятельства, если комиссия сочтет их существенными для рассмотрения ходатайства.

Дальнейший порядок рассмотрения ходатайства

Высшее должностное лицо субъекта Российской Федерации вносит Президенту Российской Федерации представление о целесообразности применения акта помилования в отношении осужденного или лица, отбывшего назначенное судом наказание и имеющего неснятую судимость.

Список лиц, рекомендованных высшим должностным лицом субъекта Российской Федерации к помилованию, подлежит опубликованию в средствах массовой информации соответствующего субъекта Российской Федерации. Опубликованию подлежит информация, содержащая фамилию и инициалы каждого осужденного, рекомендованного к помилованию, а также указание на статью уголовного закона, по которой он осужден. При этом высшее должностное лицо может также обнародовать мотивы, которыми оно руководствовалось при принятии соответствующего решения.

Направленное главой субъекта Российской Федерации в адрес Президента Российской Федерации представление к помилованию поступает в Управление Президента по обеспечению конституционных прав граждан Администрации Президента Российской Федерации, отвечающее за организационное обеспечение реализации Президентом Российской Федерации его конституционных полномочий по осуществлению помилования и конституционного права осужденного за преступление просить о помиловании.

Президент осуществляет окончательное рассмотрение ходатайства. В случае положительного решения издаётся указ, который направляется высшему должностному лицу субъекта Российской Федерации, в Министерство внутренних дел Российской Федерации, территориальный орган уголовно-исполнительной системы и администрацию учреждения, которая осуществляет непосредственную его реализацию.

В случае отклонения Президентом Российской Федерации ходатайства о помиловании повторное рассмотрение обращения осужденного допускается не ранее чем через год, за исключением случаев возникновения новых обстоятельств, имеющих существенное значение для применения акта помилования.

Помилование без ходатайства осуждённого

Спорным является вопрос о помиловании без ходатайства осуждённого. С одной стороны, в настоящее время возможность помилования осуждённого без его ходатайства не предусмотрена в явной форме никакими нормативными актами, кроме Конституции. Исключение составляет помилование осужденного к смертной казни, которое возможно и без согласия осуждённого (ч. 3 ст. 184 УИК РФ ). Кроме того, до 5 апреля 2010 года ч. 5 ст. 113 УИК РФ упоминала возбуждение ходатайства о помиловании среди прочих мер поощрения, применяемых к осуждённым ^[17] .

С другой стороны, ни Конституция, ни Уголовный кодекс ничем не обуславливают президентское право помилования осуждённого, в связи с чем основания и порядок помилования оставляются на полное усмотрение Президента РФ ^[18] .

Имеются и исторические основания помилования без согласия осуждённого. В юридической науке и практике Российской империи считалось, что «при помиловании после судебного приговора о согласии на то милуемого не может быть и речи, так как оно касается лица, уже признанного виновным и приговоренного к наказанию» ^[19] .

Указ № 1500 ^[9] и статья 176 УИК РФ регламентируют лишь процедуру помилования по ходатайству осужденного. В них не содержится положений, запрещающих помилование без такого ходатайства.

Это даёт основание некоторым учёным утверждать о возможности помилования осуждённого и без его просьбы ^{[20] [21]} .

Впрочем, в 2016 году юристы утверждали, что в их практике были случаи, когда отказывались рассматривать прошения о помиловании, поданные адвокатом или близким родственником ^[14] .

Помилование по политическим мотивам

В постсоветской России имели место случаи помилования по политическим мотивам с нарушением процедуры помилования и очень оперативно. Особенно часто это происходит, когда помилованного "обменивают" на гражданина (граждан) России, осужденных за аналогичные преступления судом другого государства. Например, в 2016 году Надежду Савченко перед ее обменом на двух осужденных украинским судом россиян президент России помиловал по ходатайствам потерпевших по ее уголовному делу и без предварительного рассмотрения в комиссии по вопросам помилования Ростовской области ^[14] . Ученого Игоря Сутягина помиловали буквально за сутки до обмена на арестованных сотрудников ГРУ ^[14] . Оперативное помилование по политическим мотивам может происходить и в случае, когда помилованного не обменивают. Например, Михаил Ходорковский был помилован спустя примерно сутки после подачи прошения о помиловании ^[14] .

Быстро могут рассмотреть ходатайство о помиловании в случае, если дело человека вызывает большой общественный резонанс. Например, в феврале 2017 года Уполномоченный по правам человека в Свердловской области Татьяна Мерзлякова предложила осужденной за репост видеоролика Евгении Чудновец подать прошение о помиловании, уведомив, что положительное заключение на него готов дать губернатор Свердловской области Евгений Куйвашев ^[22] . Мерзлякова предложила Чудновец подать прошение о помиловании в пятницу 10 февраля 2017 года, обещая, что его могут рассмотреть уже 13 февраля того же года (то есть в понедельник) и в тот же день отправить документы в Администрацию Президента России, где по словам свердловского Уполномоченного, уже ждали их ^[23] . Чудновец от помилования отказалась и вскоре была оправдана.

Право помилования по федеральным преступлениям в США ( power to grant reprieves and pardons for offenses against the United States ) принадлежит, согласно 2-й статье Конституции США , Президенту США , исключая случаи импичмента . Прерогатива, по толкованию Верховного Суда США, включает: полное прощение за преступление, условное прощение, смягчение приговора, условное смягчение приговора, снятие наложенного штрафа и конфискации, отсрочку исполнения приговора и амнистию ^[24] .

Прошения о помиловании направляются Президенту, который либо удовлетворяет прошение, либо отказывает в помиловании; обычно заявления предварительно представляются на рассмотрение и вынесение необязательной рекомендации чиновнику, занимающему специальную должность при Президенте ( Office of the Pardon Attorney ).

• Гришко А. Я. Помилование осужденных в России. Научно-практическое пособие. — М. : Логос, 2005. — 110 с. — ISBN 5-98704-022-1 .