EUROPEAN COMMISSION TWINNING PROJECTS FINAL REPORT · TWINNING PROJECTS FINAL REPORT Project Title:...

EUROPEAN COMMISSION

TWINNING PROJECTS FINAL REPORT

Project Title: Improvement of the anticorruption activities in Poland Partners: Federal Office of Administration, Germany

Ministry of the Interior and Administration, Poland Date: 18 May 2009

Twinning Contract number: PL/2006/IB/JH/01

List of abbreviations BC Beneficiary Country

BVA Federal Office of Administration (Bundesverwaltungsamt)

CBA Central Anticorruption Bureau (Centralne Biuro Antykorupcyjne)

CDBC Belgian Central Office for the Repression of Corruption (Centrale Dienst voor de Bestrijding van Corruptie)

DFB German Football Association (Deutscher Fußballbund)

ESOM Software for recovering criminal assets (Elektroniczny System Odzyskiwania Mienia)

EU European Union

EURO 2012 European Football Championship 2012

EUROJUST European Union’s Judicial Cooperation Unit

IOC International Olympic Committee

LEA(s) Law enforcement agency(s)

MS Member State

MSiT Ministry of Sport and Tourism (Ministerstwo Sportu i Turystyki)

MSWiA Ministry of the Interior and Administration (Ministerstwo Spraw

Wewnętrznych i Administracji)

OECD Organisation for Economic Co-operation and Development

OLAF European Anti-Fraud Office

PZPN Polish Football Association (Polski Związek Piłki Nożnej)

RTA Resident Twinning advisor

STE Short term expert

TF Transition Facility

UEFA Union of European Football Associations

Twinning Contract number: PL/06/IB/JH/01 Final Report

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Contents

Section 1: Project data............................................................................................... 4 Section 2: Content...................................................................................................... 5

2 A - EXECUTIVE SUMMARY.................................................................................. 5 2 B - BACKGROUND ............................................................................................... 6

General Background ............................................................................................. 6 Background Beneficiaries ..................................................................................... 8 Objectives ........................................................................................................... 10

2 C - IMPLEMENTATION PROCESS..................................................................... 11 Developments outside the project ....................................................................... 11

General Developments................................................................................... 12 Developments in regard the project beneficiaries........................................... 14 Fulfilment of assumptions............................................................................... 14

Project developments.......................................................................................... 15 Addenda (Change of key staff and project prolongation) ................................ 15 Milestones of the project ................................................................................. 16 Problems ......................................................................................................... 19

Project visibility.................................................................................................... 21 2 D - ACHIEVEMENT OF MANDATORY RESULTS.............................................. 25

Summary............................................................................................................. 25 Component 0: Project Frame .............................................................................. 25 Component 1: Central Anticorruption Bureau ..................................................... 26 Component 2: Ministry of Sports ......................................................................... 33

2 E - IMPACT.......................................................................................................... 39 CBA..................................................................................................................... 39 MSiT.................................................................................................................... 41

2 F - FOLLOW-UP AND SUSTAINABILITY............................................................ 42 2 G - CONCLUSIONS ............................................................................................ 44 2 H – RECOMMENDATIONS: lessons learned...................................................... 44

Recommendations in the field of CBA and other Polish LEAs ............................ 44 Recommendations in the field of Ministry of Sports and sports organisations .... 45 Further recommendations referring to this project............................................... 46

2 I – ANNEXES....................................................................................................... 47 Section 3: Expenditure ............................................................................................ 81


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Section 1: Project data

Twinning Contract Number PL/06/IB/JH/01

Project Title: Improvement of the anticorruption activities in Poland

Twinning Partners: MS: Federal Office of Administration, Germany BC: Ministry of the Interior and Administration, Poland

Duration of the project: 18 Months (15 + 3)

MS Project leader: Roswitha Engels

BC Project leader: 23.08.2007 – 03.02.2008: Juliusz Galkowski since 04.02.2008: Andrzej Trzesiara

Date of Notification; 23.08.2007

Period of RTA`s Stay in BC, and also the work plan: 02.09.2007 – 01.12.2008

Legal duration: 23.08.2007 – 22.02.2009

Budget (planned):

1.000.000 €

(850.000 € TF, 150.000 € Polish co-financing as

indicated in Annex III of the Twinning Contract)

Budget (spent): 697.273,67 €

Number of Side Letters: 19

Number of Addenda: 3


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Section 2: Content

2 A - EXECUTIVE SUMMARY The overall objective of this Twinning was to combat and prevent corruption in the

Polish administration or like the title of this project expresses, to “improve the

anticorruption activities in Poland”. Though the Polish legislation for fighting

corruption is well positioned and compliant with the European and world

requirements, this project aimed at strengthening the capacities in fighting and

preventing corruption of the recently founded Central Anticorruption Bureau (CBA)

and of the Ministry of Sports and Tourism (MSiT).

These project purposes were entirely achieved:

CBA’s abilities to fight corruption were strengthened by improving its

personnel capacities by means of comprehensive, praxis-oriented training

measures. An in-depth knowledge transfer between Belgian and German

anti-corruption units and CBA took place.

For training matters and for the further use as reference book for corruption

combating services a voluminous best practice book was developed as

sustainable project outcome.

Particular impact on combating corruption in Poland will be achieved by

ESOM, a software for recovering criminal assets, which was adapted to the

Polish requirements by an inter-institutional co-operation of various Polish law

enforcement agencies (LEAs)1.

For the first time ever, anticorruption measures took place in MSiT’s field of

responsibility. Training measures led to sensitising in terms of corruption

matters and improving knowledge about concrete measures for preventing

corruption for more than 400 employees in the sector of sport.

Further on, the compiled book about corruption in sport and especially the

Ethic Code for the Polish Sport will also bring forward MSiT’s efforts in

preventing corruption in the Polish sport.

1 Within this report, also CBA is regarded as (corruption fighting) LEA, despite its legal status as Special Service


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2 B - BACKGROUND

General Background Within the recent years, a series of important changes aimed at strengthening the

anticorruption legislation was introduced into the Polish legal system.

Those are, among others: the law on countering the introduction to the financial

circulation of the assets coming from illegal or undisclosed sources, new public

procurement law, the law on the access to the public information, new electoral law

and the law on political parties, law on responsibility of corporate entities as well as

several important amendments and new anticorruption provisions introduced to the

penal code.

Moreover, Poland has ratified the most important international agreements

concerning combating corruption: Criminal Law Convention on Corruption, Civil Law

Convention on Corruption and the OECD Convention on Combating Bribery of

Foreign Public Officials in International Business Transactions.

A series of legal changes was also introduced in order to enable international

cooperation and legal assistance in combating corruption. Despite the introduction of

numerous legal regulations, the problem of corruption still persists and it concerns

the majority of areas of public life.

The progress in the activities oriented at combating this problem was rather

insignificant. The conclusions contained in the Comprehensive Monitoring Report of

the European Commission of 5 November 2003 on the preparations of Poland to the

membership in the European Union show that fighting corruption should be

considered as a priority task, which should be possible to observe in the process of

strengthening the structures of co-ordination.

The legal situation in Poland for combating corruption was well improved then. It

contains the necessary framework to combat and prevent corruption effectively in its

administration and state bodies, but still, the Polish administration is not yet perfect

in the implementation and appliance of anticorruption methods and tools.


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Furthermore, according to European and worldwide standards, the Polish fight

against corruption could still be improved by strengthening the respective

competencies of selected authorities.

Therefore, a series of projects was initiated to strengthen anticorruption activities in

Poland. Previous projects for example were targeted to appeal to as many civil

servants as possible by the means of widespread trainings in many selected areas

of the public administration of Poland.

However, the activities carried out within this actual anticorruption project, titled

“Improvement of the anticorruption activities in Poland”, are aimed at strengthening

the administrative capacity of Polish agencies responsible for fighting against crime

and combating corruption. The training and assistance provided in the framework of

twinning aims at increasing the knowledge of solutions applied by the EU MS law

enforcement bodies.

On the one hand, this project’s first beneficiary, the recently founded Central

Anticorruption Bureau, should be supported in strengthening the combat of

corruption in organizational and administrative respect through the implementation of

instruments, which have been successfully established in the EU MS.

On the other hand, a further corruption-prone administrative sector, sports, should

be supported in its endeavours to improve its anticorruption activities. Due to a lot of

corruption scandals in the fields of sports during the recent years and, more

important, due to the decision of the UEFA, to manage the European Football

Championship EURO 2012 in Ukraine and Poland, setting both countries and its

sports organisations in the focus of the European attention, the project regarding the

second beneficiary, the Ministry of Sports and Tourism, is very actual. Those

scandals also include corruption amongst football referees in connection with bets

being similar to the German referee scandal “Hoyzer”.


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Background Beneficiaries a. Component 1, Central Anticorruption Bureau The Central Anticorruption Bureau (CBA), an agency which was established in 2006,

is assigned with extensive inquiry, investigation, prevention and analytical

competences in order to combat corruption and fight against any activities which

may endanger the State’s economic interests.

The CBA’s statutory tasks comprise undertaking and conducting of actions which

are aimed at the field of corruption. This includes the prosecution of offences against

operations by governmental and self-governmental agencies, the jurisdiction, as well

as elections, the trading of money and securities if they are related to corruption or

threaten the state’s economic interests.

CBA is responsible for (see: article 2 of the CBA’s Bill of 9 June 2006): identifying,

preventing and detecting any form of a crime (and its perpetrators) against State and

self-government institutions’ activities (e.g. crimes stated in articles 228-231 penal

code, act on limitations in running of a private business by public officials), justice,

elections and referendums, public order and procurement, credibility of documents,

property, economic turnover, tax duties, grant and subvention settlements – whether

it is with connection to any form of corruption or activity which may endanger the

State’s economic interests, controlling the financing of political parties in case a

relation to corruption is revealed, tax liabilities and settlements of accounts due to

donations and subsidies if they are related to corruption or threaten the state’s

economic interests.

CBA officers’ activities have an investigative (criminal proceeding) character. The

criminal investigation concerns therefore identification, detection of a perpetrator and

bearing criminal responsibility in consequence. In this case it means that combating

corruption by the CBA may also concern leading the pre-trial proceedings.

The second area of CBA’s activities relates to the corruption prevention matters as

prevention of any corrupt behaviour or practice which is not a crime yet. The Central

Anticorruption Bureau as a special anticorruption service shall ensure a correct, free


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of abuses and pathologies functioning of the State and its economy. The

abovementioned aim is supported by special instrument (called ‘controlling

activities’) which controls the breaching anticorruption law by:

- Disclosing and reacting in cases of breaching of law concerning e.g.

limitations of running of a private business by public officials, controlling the

decisions in privatization and commercialization, financial support, public

procurements, state or private properties, concessions, permissions,

exemptions, allowances, preferences, quotas, credit guarantees,

- Verifying the correctness and authenticity of public official’s declarations and

running of private business declarations.

The third area of CBA’s scope concerns analytical competences on the corruption

related matters and any activities which may endanger the State’s economic

interests. Due to the CBA Bill’s provisions, this information shall be submitted to the

Prime Minister, the President of Republic of Poland and the Parliament.

A special CBA’s obligation is to provide the Parliament with the information about the

results of its activities as well as provide the report to the Prime Minister and

Parliamentary Special Services Committee until 31 March of each year at the latest.

b. Component 2, Ministry of Sports Due to many corruption scandals in the headlines during the recent years, the topic

of “sport and corruption” became more and more in the centre of the world’s public

attention. Exemplarily at this point are the “IOC and the Salt-Lake-City-Scandal”, the

accusation of corruption in the context of the awarding of the Winter Olympics 2014,

the accusation of bribery in the context of the Asian Olympic Qualifying Competition

in handball as well as corruption scandals in football. Italy, England and Germany

had their corruption cases in the younger past.

In Poland, the Police and Public Prosecution Office of Wroclaw investigate in cases

of corruption in the Polish football since 2005. Within these cases, round about 30


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football clubs and more than 100 persons are supposed to be involved in Poland

together with the Ukraine has been awarded for the realization of the European

Football Championship EURO 2012 and therefore is in the focus of the European

publicity. Big events like the EURO 2012 can be, due to immense volumes of orders

and special deadline pressures, a gateway for corruption.

Furthermore, about 80 % of the budget of the Polish Sports Organisations (which

are NGO’s) is provided by the government. This situation may also be regarded as a

source of corruption.

In view of the above, the Ministry of Sport and Tourism (MSiT) is preparing its own

anticorruption strategy. The Twinning Project will be useful for creating the tools for

this strategy. Training in anticorruption matters will be useful as well to create a new

way of cooperation between the MSiT and the Sports Organisations.

The Ministry of Sport and Tourism employs about 120 people; the total number of

employees that work for Sports Organisations is about 3500 people.

Objectives The general objective of this Twinning Project is the improvement of the

anticorruption activities in Poland by combating and preventing the corruption in the

Polish administration. Therefore, the ability of the new founded Central

Anticorruption Bureau CBA to fight corruption should be enhanced and a corruption

prone sector of the Polish administration, the Sport, should be supported in its

endeavours to prevent corruption in its field of responsibility.

To aim this objective, the project partners agreed upon the following mandatory

results:


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2 C - IMPLEMENTATION PROCESS

Developments outside the project

The key developments during the implementation period have already been

described very comprehensively within the Final Report of the (widely) parallel

conducted Twinning project “Enhancing anti-corruption activities in Poland”

(PL2005/IB/JH/01).

Intervention logic Benchmarks Activities

Recommendations for improving the work of CBA submitted 1

Knowledge about managing anticorruption agencies and developing respective strategies gained by the CBA leadership

1.6

1. The staff and the institutional capacities of the CBA in the field of combating and preventing corruption enhanced

Practical knowledge about best practices in combating and preventing corruption gained by approx. 150 staff of CBA

1.2, 1.5, 1.7; 1.8

The awareness for anticorruption issues raised within the Ministry of Sports and the Polish sport organisations

2.1, 2.2, 2.6

Funding and working procedures reviewed and recommendations for improvement with special regard to corruption issues provided

2.3

2. The staff and the institutional capacities of the Ministry of Sports and the Polish Sport organisations with special regard for combating and preventing corruption enhanced

Staff trained 2.3, 2.4.

Various manuals/handbooks for the further use elaborated and distributed 1.3, 2.5, 2.6

Mandatory Results

3. Sustainable documents and tools for the further fight against corruption within the Polish administration elaborated and submitted

Electronic manual/tool for confiscating criminal income adapted to the Polish situation and implemented for the use of Police/CBA and prosecutors

1.4


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General Developments (Cited from Final Report PL2005/IB/JH/01)

Many important changes to the political situation have caused also major changes to

the administrative structure and amongst them also to the anti-corruption system

throughout the term of the project. The most noticeable turn was the changing of the

Polish government following the elections of October 2007.

Combating corruption was one of the major issues during the election campaign,

deliberately initiated by the defeated former governing party PIS. The debate about

domestic policy was widely dominated by corruption, combating corruption and law

enforcement strategies, basing on the opinion, that corruption in Poland is ruled by

an alleged network of organized crime and corruptive high-level criminals. The

corruption prone attitudes within the Polish society, the corruption hazards within the

political system and the supporting circumstances in the Polish administration where

mostly not recognized during this debate, the whole discussion was predominated

by the question of how to enforce the legal system by observing and convicting high

level suspects.

After the elections the new government shifted their main focus towards an

approach in favour of strengthening the civil society in combating corruption and

enhancing the existing prevention measures. A crucial point of the new

government's strategy was the appointment of a Secretary of State within the

chancellery of the Prime Minister, responsible for the anticorruption activities of the

government, the so called Government Plenipotentiary for Incorrectness Prevention

in Public Institutions. This function has already been installed for half a year, at the

time when this report was prepared. Nevertheless, the acting government hasn't yet

launched any substantial changes to the system of regulations on combating and

preventing corruption. Generally, the mood of the political debate in this field has

calmed down noticeable in comparison to the situation under the former government

- on the other hand there are neither new impulses nor milestones visible for the

time being.


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Specially worth mentioning in this concern is the lack of any publicly debated

strategic aim of the government in the field of combating corruption. While the

existing anti-corruption strategy from 2005 is outdated – despite the fact that the

strategy is still valid until 2009, it is not complying with reality any more – there is no

updated follow up envisaged. Even during interviews or public presentations of the

Plenipotentiary – who is solely responsible for the anti-corruption activities of the

government – a new strategic orientation has not been mentioned yet.

Publicly there is only a debate about specific corruption cases, which is often joined

by politicians of the government and of the opposition parties as well. The main

public interest during these debates is the investigation and uncovering of

misbehaviour of any public official involved. Therefore, the major output of the work

of the Plenipotentiary is a report about the misuse of company credit-cards in public

administrations and ministries during the term of the former government, which has

been presented to the public at the beginning of June – a process of coming to

terms with the past after more then seven month past the elections and half a year

past the installation of the Plenipotentiary.

When it comes to an analysis of the situation, the source of corruption is mostly

identified as the malfunction of government authorities and specially found in

inefficient supervision of superiors in combination with lack of considerable

consequences for the perpetrators. Nevertheless, a strategy on how to fight these

alleged sources of corruptions has yet not been publicly presented. All in all there is

no strategic orientation of governmental anti-corruption activities detectable. The

various activities of the responsible government authorities remain mostly

uncoordinated and in concern of their effectiveness unevaluated.

For the time being no specific progress related to the anti-corruption activities of the

Polish government – neither in investigation nor in prevention – can be determined.

Particularly in preventing corruption the lack of co-ordination between the different

actions leads to ineffectiveness beyond the possibilities. Moreover this insufficient

strategic approach can be also assumed as the reason why so many Twinning

Projects (four since 2004) have been realized in the field of anti-corruption under the


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leading of the MSWiA, without noticeable follow-up. Each project was exclusively

designed for a number of specific beneficiaries. Only if the beneficiaries were the

same in two or more projects, there was a significant carry over. There was no

detectable attempt by the Polish side to establish a structure to provide sustainability

of the achievements of the individual projects.

Developments in regard the project beneficiaries These political developments have had some influence on the project

implementation. The elections in October 2007, the time until the settlement of the

new Government and the phase of re-orientation of the administration led to a

temporary “paralysis” of the Polish project partners and retarded a smoother project

start.

In regard to the further structure and competencies of the CBA, controversy,

discussion an uncertainty, especially within the new Government, prevailed at the

end of the year 2007. It was expected that the newly-created post of the

Government plenipotentiary for struggle against corruption would make

modifications in terms of the CBA’s status, but none of such happened. After a

phase of awaiting the issue, the project implementation could be expedited.

In September 2007, the Polish Parliament passed a law about the EURO 2012.

According to this act, several regulations of the Public Procurement Law will not

apply in concern with the EURO 2012 preparations, in order to facilitate and speed

up procedures. This law holds a high corruption risk. The more the Public

Procurement Law is shortened the higher the risk of corruption. This new

development led to the decision to train the employees of the MSiT and the sport

organisations in the field of detecting and preventing of corruption in procurement

cases.

Fulfilment of assumptions All of the original assumptions of the project (Article 3 of the work plan) were fulfilled.

Solely the financial obligations resulting from the Polish co-financing could not be

fulfilled entirely until the end of the project. 3 out of 7 training measures which have


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to be financed exclusively by the Polish side had to be postponed into the year 2009

due to financial reasons.

Project developments

Addenda (Change of key staff and project prolongation) The main project developments could be anticipated by the necessary changes of

the original Twinning Contract. During the project implementation phase the project

was adapted by

• 19 Side Letters (primarily dealing with the nomination of new STE in general

and for various project activities in particular, as well as in terms of adapting

the project budget to the actual needs) and

• 3 Addenda for the following revisions of the Contract

Addendum No 1, taking effect on 16 November 2007: The primary

RTA, Mr Klaus Kunze terminated his secondment on 30 November 2007

due to personal reasons. He was replaced by Mr Holger-Michael Arndt on

01 December 2007.

Addendum No 2, taking effect on 04 February 2008: The original Polish

project leader and RTA counterpart had to be replaced due to health and

personal reasons. This was done on 04 February 2008. From this date on

Ms Sonja Strycharska acted as RTA counterpart and Mr Andrzej Trzesiara

fulfilled the role of the Polish project leader.

Both changes of key staff took place absolutely smoothly and had no

negative impact on the project implementation. The new RTA as well as

the new Polish project leader were already well acquainted with the Polish

anticorruption policy and the objectives of this Twinning project at the

beginning of their missions.

Addendum No 3, taking effect on 28 August 2008: The legal duration,

work plan, residence of the RTA and the employment of the language

assistant were prolonged for three months to ensure the achievement of

all mandatory results of the project, in particular the completion of the

manuals “Europa bez Korupcji” and “Sport bez Korupcji” (Europe/Sports

without Corruption)


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Milestones of the project Within this project, the team worked on three large working packages, whose

implementation each represents a project milestone:

1. Assessment and training activities, study visits

2. Electronic manual on recovery criminal assets (ESOM)

3. Manuals “Europa bez Korupcji” and “Sport bez Korupcji” (Europe/Sports

without Corruption)

Assessment and training activities, study visits

The implementation of this working package took place fast und smoothly and as

scheduled in origin. During the assessment activities, not only the current situation

within the field of responsibilities of the projects’ beneficiaries was evaluated, also

the concrete training needs of the Polish beneficiaries were identified and jointly

agreed.

The assessment for Component I (CBA) was conducted in the first month of the

project implementation. The training activities for CBA started in the middle of the

third month and were finalized during the eleventh month of the project

implementation, in July 2008. Altogether 11 training measures for in total 250 CBA

officers took place. Beyond these trainings in Poland, 27 officers of CBA got the

opportunity to enhance their knowledge about the corruption fighting procedures in

EU MS by visiting LEAs in Belgium and Germany. The beneficiary was highly

interested in these training measures in general, all participating officers were

engaged and motivated and the organization by the Polish project partners as well

as by the MS partners during the study visits was very efficient and effective.

In component II (MSiT), the assessment also starts in September 2007 and was

finalized in December. The results of this assessment including recommendations

for training activities were presented to the leadership of the ministry in January

2008 and agreed by them. Subsequent the training programme for the employees of

the ministry and the belonging sport organizations started and lasted until June

2008. Within these activities, MS experts coached employees of the ministry to

develop an exemplary Ethic Code for the Polish sport.


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Altogether 89 employees of the ministry and ca 320 employees of sport

organisations benefited from the conducted trainings and lectures of MS experts.

Interest, motivation and engagement of the beneficiary in this component have been

assessed as positive as in component I. Also the organisation of the training was

managed in an excellent manner.

For more detailed information about all training measures please see below, item 2d

“Mandatory results”.

Electronic manual on recovery of criminal assets (“Elektroniczny System

Odzyskiwania Mienia” ESOM)

The preparations for this “project within the project” started some months before the

implementation phase of the Twinning project. During the contract negotiations, first

meetings of RTA and German project leader with involved Polish LEAs took place in

order to inform all parties about the technical and organisational pre-conditions for a

successful development and implementation of this tool. In spite of this long term

prearrangements, not all preconditions for a smooth implementation of ESOM have

been created by the involved Polish LEAs. Necessary administrative agreements

about the co-operation during ESOMs compilation, about the allocation of tasks and

responsibilities of the involved LEAs have not been concluded in time.

In the beginning, these unclear responsibilities led to a non-uniform engagement and

interest of the various Polish LEAs. Additionally, the information about ESOM and

about the preconditions for a successful implementation was not spread to the direct

superiors of the involved Polish experts. Consequently, the Polish experts got

problems to become released for the work on ESOM in the necessary scope. This

unsatisfying situation could be solved by improving the information policy about

ESOM. RTA and Polish project leader invited the responsible Secretary of State

within MSWiA as well as the Deputy General State Prosecutor for an informal

presentation about ESOM and its usefulness for the Polish LEAs to ensure their

personnel and political support for this project. In addition the RTA informed the

direct superiors of the work group members about ESOM and the demands for a

successful implementation. These measures and the huge individual commitment of


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all persons involved allowed for finishing ESOM in due time, despite the above

mentioned shortcomings.

For the successful creation of ESOM, the German STE conducted six, each one-

week-lasting workshops. One STE coached the “lawyers group” which was

responsible for the juridical input to the electronic manual the other STE coached the

“investigators” in filling ESOM with the necessary details for successful financial

investigations. It is worth mentioning that the Polish experts had to work on ESOM

also in the time between the various workshops. They received working packages

which they had to fulfil until the next workshop. As stated above, not all experts

became released in the necessary scope for this work.

Nevertheless, the “beta –version” of ESOM was finalized in late summer 2008.

Meanwhile the Polish government decided to create a “Criminal Assets Recovery

Bureau”, which shall among other tasks also be responsible for the maintenance

process of ESOM.

Manuals “Europa bez Korupcji” and “Sport bez Korupcji”

The “editorial and technical finalizing” of the two best practice manuals, entitled

“Europa bez Korupcji” (“Europe without corruption”) for the Polish law enforcement

agencies (component I) and “Sport bez Korupcji” (“Sport without corruption”) for the

Polish sport (component II) was the main priority during the last third of the project

implementation phase.

Although the compilation of the Best practice manual started immediately after the

project kick off, this working package fell behind schedule early. On one hand,

translating MS experts’ contributions was much more time consuming than

expected. On the other hand, also the Polish contributions were accomplished with

delay, because none of the Polish experts was released from his usual duties to

write the articles for the manual. This had to be done during leisure time.

Subsequently, a meeting of MS and BC experts to compare MS and Polish case

studies to elaborate the “European best practice” could take place only in the mid-


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August 2008. As a result of this fruitful meeting a lot of contributions had to be

revised by the authors, so that the work on the layout and other technical issues

could not start before October.

Parallel to the editorial work on the manual for component I, the book „Sport bez

Korupcji“ had to be finalized. This book was designed for a broader audience in a

more popular style than the manual for the law enforcement agencies (LEAs). It was

thought to be readable for a broad public. Therefore we had to put high demands on

the quality of the translations of the articles of MS authors. Further on, a Polish

editor had to be engaged to ensure linguistic harmony and good readability of the

texts in Polish language. The time needed for ensuring a “high quality translation” of

German contributions to the book (every translated German contribution had to be

checked by another translator to ensure a proper translation, both in respect to the

authors style as his wording), the necessary time for compiling linguistically coherent

books, the time needed for the technical layout, the long-lasting editing process

(which was time consuming due to necessary retranslation into German), all this was

not expected at the beginning of the project. Finally, the appearing deadline could

only be observed by increasing the workload of the involved parties and of course by

working through nights and weekends.

Thanks to the huge personnel commitment of the RTA, editor and lay-outer and the

flexibility of the printer shop, both books could be printed in due time and therefore

be presented during the Final Conferences.

Problems Beyond the already abovementioned problems, two further problems should be

mentioned which could have influenced reaching the mandatory results:

• At the beginning of the project implementation phase, the project seemed to

be completely unknown in the Ministry of Sport, even though one of the last

activities during the TF 2004 project was to inform the Strategy department

and Director General of MSiT about the project and its objectives. The

ministry seemed to be uninformed and unprepared for the project. Therefore,


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the co-operation with this beneficiary started with certain difficulty. After an

intervention of MSWiA and intensive awareness-rising activity undertaken by

the RTA and due to personnel changes in the management of MSiT this

changed rapidly. MSiT nominated two highly motivated and interested

persons for implementing the project activities. The interest in the project

outcome grew, the communication flow was improved and the co-operation

with MSiT became very pleasant and successful.

• While elaborating the manual for the LEAs, problems in the co-operation with

the beneficiary CBA arose. The CBA was (in parts understandable)

unsatisfied with the framework for the work on this manual. The book was

destined for all Polish corruption fighting LEAs, but CBA should be the only

LEA which had to make a contribution to this book. Further on, the CBA

authors had to write their comprehensive contributions to the manual during

their leisure time, without any (financial) compensation (while the MS authors

received a fee). Questions about the authors rights arose, financial

compensation had to be discussed. Though the content of the book seems

also to be suitable as manual for “the other side for improving their criminal

energy”, CBA demanded to classify the book as “for official use only” and

resulting puts the reliability of all involved persons into question. However, the

co-operation became more and more difficult and both sides became

suspicious about each other.

This problem/situation/conflict could be solved because of the excellent co-

operation of the main project partners, MSWiA and BVA. At every time they

analyzed the situation jointly, agreed about alternatives and “acted in

harmony”. A trilateral agreement with CBA about the further work on the

manual and about each party’s rights and duties was concluded. Further on,

MSWiA and BVA agreed about a contingency plan, in case CBA does not

make its contribution to the book. In the end MSWiA and BVA on one side

and CBA on the other side moved together to reach the best benefit for the

project outcome.


21

Both above mentioned problems were solved by the Twinning partners by acting

together with the view to reach a common objective.

Project visibility To ensure the project visibility, the Polish project partner (beneficiary) MSiT reported

about all project activities on its website. This always was used to point out that the

training measure was part of the EU financed Twinning project “Improvement of the

anticorruption activities in Poland”.

Further on MSiT twice afforded RTA and STE the opportunity to introduce the

project, its contents and aims to the management of the Polish Sport organizations.

To ensure the project visibility also for a broader public, three “visibility events”, one

kick-off and two Final Conferences were carried out. Kick-off and one Final

Conference were organized for professional audience; the other Final Conference

was organized for a broader public and was visited by ca. 20 press representatives

who reported about the Conference and the EU engagement in various newspapers.

During all project activities it was advertised by using the EU Logo and mentioning

the programme “Transition Facility” that the whole project and the respective training

activity are financed by the EU. The EU Logo e.g. was used on nameplates or

presentation slides, through give-away pens and writing pads all participants used

during the seminars and trainings or even through business cards (see one example

on the photo below) used by the core BC and MS project team as well as on a roll-

up which was used during all project (training) activities.


22

Last, but not least the book covers of both manuals, “Europa bez Korupcji” and

“Sport bez Korupcji”, created and printed during the project, left no doubt about the

initiators of this project:


23

The EU in its function as the financier of this project was directly named in the

imprint of the book itself, too:


24


25

2 D - ACHIEVEMENT OF MANDATORY RESULTS

Summary The project’s mandatory results, i.e.:

1. to enhance the staff and the institutional capacities of CBA in the field of

combating and preventing corruption,

2. to enhance the staff and the institutional capacities of the ministry of Sports

and the Polish Sport Organisation with special regard for combating and

preventing corruption and

3. to elaborate and submit sustainable documents and tools for the further fight

against corruption within the Polish administration

were entirely achieved, even though the benchmarks of two project activities could

only be partly achieved (see below 1.2 and 1.7).

The following description provides a brief overview on the outcome of the project

activities which led to the achievement of the mandatory results. A tabulation of the

mandatory results achieved is enclosed as Annex I to this report.

Component 0: Project Frame 0.1 Kick – off Conference The project was officially opened on 09 October 2008 with the “Kick-Off-Meeting”

held at the guest house of MSWIA with 23 participants. During the Kick off meeting

of this last anticorruption project financed from the EU Transition Facility Funds in

Poland, general concepts and matters of the project were presented to the

participants of the Polish, German and Belgian authorities. The RTA provided an

overview about the planned activities in both project components.

The benchmark of this activity has been achieved.


26

0.2 Final Conference On request of the Polish beneficiaries two Final Conferences, one for each

Component took place within this project. On 26 November 2008 a Conference for

the Sports Component with the participation of the mass-media took place (see

below, activity 2.6), and on 25 November 2008 the activities within the CBA

Component were closed by a Final Conference, organized for corruption fighting

LEAs. This sectioning allowed for presenting classified project results (like ESOM

and the best practice manual) during the Conference for the LEAs.

During this Conference, the results of the previous anticorruption projects (Phare

2003, TF 2004 and 2005) and of Component I were presented to the participating

high-ranking Polish corruption fighting officers. But not only a review of the project

activities took place, also the newest developments in the Polish fight against

corruption were presented to the audience. Mr Adam Rapacki, Vice-Minister in the

MSWiA, presented in a very interesting and impressive manner the planning about

the new Polish Recovery Criminal Assets Bureau. Intensification of financial

investigations and of recovery of criminal assets was continually recommended by

German STE during the anticorruption Twinning projects in Poland.


Component 1: Central Anticorruption Bureau 1.1 Analysis of the current situation in the CBA At the beginning of this component, experts analysed the current situation of CBA

with special regard to the prevention and the fight against corruption. Therefore,

Belgian and Dutch experts visited various departments of CBA to receive a first

impression as things were there until the project. They had conversations with high

officials and the employees which occurred in a hospitable, constructive and trustful

atmosphere. So, they obtained more background information as well as their

expectations referring to the project.

Furthermore, it was possible to agree upon the training contents.


27

Altogether, the analysis was completed satisfyingly. The report was submitted to the

Polish counterparts and to the German experts and enclosed to this Final report as

Annex II.

The benchmark of this activity has been achieved. 1.2 Preparation of a corruption map for Polish administration and law

enforcement Agencies The aim of this activity was to familiarize the participants, 13 experts from CBA and

other involved LEAs, with the empirical methodology for preparing a corruption map.

During the first of originally planned two workshops, the MS expert presented in

detail information-gathering procedure, information flow and analysis for the German

corruption map (Korruptionslagebild), which is published every year by the Federal

Office of Criminal Investigations. An in-depth knowledge exchange, especially about

occurring problems in Germany and Poland took place.

It became obvious soon, that there is a huge lack in the co-operation of Polish LEAs

for creating a corruption map. Every institution collects its own data, an exchange

and harmonization of collected data does not take place, be it because of –

incomprehensible - classification of data or even through the competitiveness of the

various LEAs. However, during this workshop the participants agreed that CBA will

prepare follow-up meetings to strengthen the co-operation in creating a Polish

corruption map. The MS STE was to be involved in these meetings, if necessary.

Despite repeated requests on this topic, the project didn’t receive information about

the progress of the Polish corruption map.

The benchmark of this activity has been only partly achieved.


28

1.3 Case studies on best practice regarding corruption investigations including international instruments with one day seminar presenting the elaborated manual for the officers of CBA.

By means of precise case studies from the day-to-day business of the Polish,

Belgian and German law enforcement agencies (LEAs), experts of these three

states have created the comprehensive compendium “Europa bez Korupcji” to be

used as reference book as well as for the education in the field of prevention and

persecution of corruption.

This creation shall contribute to the improvement of the fight against corruption in

Poland. A comprehensive introduction, which describes the judicial situation of the

fight against corruption in the three states involved, 12 practical cases including

altogether 23 different solutions, various information in connection with the judicial

and practical possibilities of the LEAs in the three states participating and a

comparative resume and concluding summary of all 12 cases as a follow-up to the

solutions of the cases were mediated to the reader on more than 400 pages. This

representation shall be conducive to a better understanding of the strengths and

weaknesses of the national methods of resolution and enable its classification in the

European context.

Furthermore, the editors decided to include an index of all Polish legal norms being

used in the forth as well in the last chapter, so that the Polish solving strategies can

be followed easier.

During the creation of the manual, examples from the praxis and an authentic

presentation of the solutions of this cases had been drawn much attention to. For

this reason the book is only available for a selected group of readers. The work on

these cases took place in all three states participating as well as in their languages.

Due to this, the creation of this manual was connected with a multitude of

translations.

All in all, 3.000 exemplars of the manual „Europa bez Korupcji“ have been printed

and handed out.


29

One copy of the book is annexed to this report.


1.4.1 Implementing the electronic manual on confiscating illegal/criminal income

This electronic manual / this software leads as well investigators as prosecutors and

judges through the “(juridical) jungle” of financial investigation and recovering of

criminal assets. This software based on German law could be adapted to the Polish

legal system and the Polish requirements by an inter-institutional work group which

was coached by two German experts. Due to the huge personnel commitment of the

involved work group members, only six official one week lasting meetings have been

necessary. Most of the work was done in the time between the official meetings,

often in the Polish experts’ leisure time

Meanwhile, the Polish government decided to create a “Criminal Assets Recovery

Bureau”, which shall among other tasks also be responsible for the maintenance

process of ESOM.

One CD-R of ESOM is annexed to this report.


1.4.2 Training on the electronic manual on confiscating illegal/criminal income

Two trainings on the use of the manual took place. The first training was conducted

for the member of the “ESOM work group” and was designed to broaden their

knowledge about respective civil law. Extensive juridical knowledge is necessary for

successful recovery of criminal assets. The trained persons shall act as trainers on

ESOM and recovering criminal assets in future.


30

The second training was offered for CBA officers and gave a brief introduction to the

recovering criminal assets and the use of ESOM.

The final report about ESOM is enclosed to this Final report as Annex III.


1.5.1 Training about the controlling of public administration in the field of corruption in public procurement (for approx. 25 officers of CBA)

The experts explained various gateways of corruption and substantiated these

aspects by means of case studies and practical experiences from Germany.

Furthermore, the Polish law EURO 2012 was presented as well as the risk of

increasing corruption cases due to this law was discussed with the 28 participants.

Those became acquainted with the “Benford Law”, a statistical tool for the detection

of irregularities in accountings. Other topics have been the manipulation in allocating

contract works and their planning or the possibilities of the cooperation between

internal audit and law enforcement agencies.


1.5.2 Training about the European legal measures and international practices in combating corruption, with special consideration of international co-operation (for approximately 125 officers of CBA)

A total of six trainings for the employees of the regional offices of CBA took place in

Gdansk, Poznan, Wroclaw, Katowice, Rzeszow and Warszawa. Each of the

trainings was jointly conducted by a team consisting of a German and a Belgian

police officer. During the trainings, different European strategies for inquiring

corruption cases were presented by means of authentic cases taken from the praxis

of the Police work.

Some of the discussed cases became part of the manual (activity 1.3)


31

Altogether, 124 persons took part in the trainings. Comprehensive training material

could be handed out to the participants.


1.6 Training for the management level of CBA The three following activities were designed / planned as training for the CBA

management. On the contrary to activity 1.5, which should convey primarily practical

experiences, activity 1.6 aimed at delivering strategic input, on a higher level of

abstraction. Soon it became obvious, that the beneficiary had only interest in

practical experiences, strategic input was not desired. To meet the beneficiaries’

demands, the trainings described below were geared towards practical work, even

though the MS partner sees the necessity of training in strategy issues.

1.6.1 Training about the strategies of anticorruption offices (for approximately 20 high ranking staff of CBA)

The experts demonstrated methods of developing early warning systems to

accomplish risk analyses and to identify indicators for corruption. Additionally, they

discussed possible opportunities and current tools with the participants to prevent

corruption in an effective manner. At least, they presented the prevention tool for this

time being used in Germany and talked about alternative preferences to implement

such tools assimilated to the Polish circumstances.

1.6.2 Training about international cooperation in combating corruption (for approx 20 high level officials)

Experts of OLAF and EUROJUST introduced the best ways of co-operation with

their authority to 33 officers of CBA. This was combined with additional information

about the “background” of OLAF and EUROJUST, their special field of

responsibilities and competences.



32

1.6.3. Training about social communication in the field of combating corruption (for approx 20 high level officials of CBA)

On specific request of the beneficiary this training was held by the press officer of a

German intelligence service. 24 officers of CBA became acquainted with the public

relation work of this German intelligence service. From the very beginning, somehow

a contradiction between the activities of an intelligence service on one side and the

needs for appropriate public relations (and the democratic control of intelligence

services) on the other side was noticed. Many questions were asked about the way

the German service solves this rather antagonism with its approach.

The participants of CBA were highly interested in which way the department for

public relations works and what experiences they made, especially in regard of

critics by the public or press releases.


1.7 Training about the Polish anticorruption law for approx. 140 staff of CBA This activity totally had to be financed out of the Polish co-financing. Until the end of

the implementation phase, four trainings for 20 participants each were organised

and conducted. In respect of the decrease of financial means from the Ministry of

Internal Affairs and Administration and, in consequence, financial and technical

difficulties, the other three trainings were postponed to the year 2009.

The benchmark of this activity has been partially achieved

1.8.1 Practical introduction of web-based anti-corruption tools and special undercover techniques at D.I.E. Hamburg (for 5 officers of CBA)

During this one week lasting study visit the 7 participants of CBA got theoretical and

practical introduction into the way of counteracting corruption in the State of

Hamburg. Beyond a general introduction into “Hamburg’s way” and strategy of

combating corruption, the presentation of technology and techniques used for

(undercover) investigations was in the focus of this knowledge exchange.



33

1.8.2 Practical introduction of operative procedures in Belgium and strengthening of CBA’s ability for international co-operation

Due to the efforts and courtesy of the Belgian police, this study visit could be

realized for 20 instead of the budgeted 5 Polish participants.

So, during their stay in Belgium and the Netherlands, 20 CBA officers received an

insight into the working methods of the Belgian CDBC, the Dutch Rijksrecherche and

OLAF and Europol. This international collegial knowledge exchange was a further

step to permanent partnerships of CBA with the visited institutions.

One month after this visit, CBA and CDBC signed a formal co-operation agreement.


Component 2: Ministry of Sports Introductory Remark The cooperation with the Polish project partners was very close and constructive

and therefore facilitated a comprehensive implementation of the desired results in

component 2. Each of the more than 15 seminars was prepared and realized in a

tailor–made manner, according to target group and needs.

2.1. Analysis of the current situation in the field of anticorruption activities within the responsibility of MSiT

An assessment about the current situation in the field of anticorruption activities

within the scope of MSiT taking into consideration

- the regulations for all kinds of funding by the Ministry of Sport,

- the structure of sport organizations/institutions in Poland,

- the current relation of the Ministry of Sport to the sport organizations,

was successfully carried out.

For this analysis, the MS experts held in particular

- Interviews in the Ministry of Sports (Leader respectively employees of the

departments),

- Interviews with selected sports organizations,


34

- Discussions during sport conferences,

- Interviews with the Polish Football Association.

On 15 January 2008, the report regarding the situation within MSiT and the Polish

sports associations has been presented to and discussed with the management

level of MSiT.

The benchmark of this activity has been achieved. 2.2. Presentation of analysis inc. recommendations to leadership of MSiT Based on the results of activity 2.1, the German experts have presented proposals

how the liability to corruption can be reduced, concrete training measures have been

proposed.

Main results of the analysis and focal points of the presentation were (at a glance):

- The funding regulations of MSiT are already well developed no training

needs,

- EURO 2012 and respective changes in procurement law are a gateway of

corruption particular training needs,

- Situation in Polish football / match-fixing damages the reputation of sport in

general and football in particular particular training need for Polish Football

association,

- In general:

o Corruption is still a taboo issue in the field of sports.

o The discussion about corruption is marked by much skepticism in that

area.

o An idealization of work for sport takes place.

o Peer pressure exists in the “family of sports”

Awareness rising must be improved; development of an Ethic Code

By means of examples from the analysis of the situation in Poland as well as from

well known international corruption cases, the MSiT management was familiarized


35

with the phenomenon of corruption in general and within the field of their

responsibility in particular.

The MSiT agreed to the proposed training plans.

The benchmark of this activity has been achieved. 2.3. Training about best practices in combating sport corruptions A total of 89 employees of the Ministry of Sports and Tourism have been sensitized

and trained by MS experts in four seminars especially in line with their necessities.

Concerning the objective of the first introducing, basic sensitization, the participants

of the Ministry of Sports and Tourism were confronted with questions of ethics and

integrity in the area of sport.

Focal point of this sensitization training was to improve the participants’

acquaintance of indicators for the identification of corruption in sport in order to

enable them to find adequate possibilities of reaction in personal and organizational

ways.

Subsequent to this basic sensitization, special trainings about the possibilities of

counteracting and preventing corruption in the participants’ fields of responsibilities

took place:

- Training about the preparation und planning of the realization of the European

Football Championship EURO 2012 which dealt explicitly with the appliance

of European public procurement law

- Gateways of corruption in public procurement / construction audits

In two further seminars, the participants developed under the skilful guidance of their

own colleagues an ethic code for the Polish sport which they have discussed about

in detail with MSiT leadership. At the end of the project, this ethic code could be

concluded as an obligatory regulation for the Polish sport.



36

2.4. Expanding knowledge, skills and practical solutions among sports representatives

Within ten further seminars for the employees / managers of Polish sports

associations, two events especially for the officials of the National Polish Football

Association (PZPN) could be offered. These trainings were carried out by a Vice-

president of the German Football Association (DFB).

Representatives of the other more than 50 Polish sports associations could be

sensitized and trained in questions of corruption-free leadership of sports

associations in eight further seminars with high demand.

Besides a general sensitization, which aimed at the identification of corruption and

the handling of corruption cases, the participants received a basic training

concerning the handling with finances in general, the allocation of financial

resources, questions of purchase and the choice of contractual partners.

Two additional trainings could be carried out on request of and with the support of

the MSiT at the National Olympic Centre in Spala. Within a conference, trainers of

the Olympic Winter Sports could be particularly addressed. In a following event for

auditors of the Polish sports associations, additional techniques for a faultless

handling with the financial means of the organisations and associations could be

presented.

All in all, 320 persons participated in the trainings of activity 2.4 and were provided

with additional training materials.


2.5. Prepare and print the report on sport corruption Within the project, a comprehensive and praxis-oriented manual was created for all

areas of the Polish sport. There are more than 270 pages including articles of more

than 20 authors from Poland, Germany and other European states. Questions


37

concerning corruption in football, the identification of corruption in the sport as well

as possible sport-specific measures of prevention are dealt with in special chapters

of this manual.

The manual was written by STEs of the project and well known Polish and German

journalists. An article of the Polish police officer who was responsible of the inquiry

of the corruption cases in Polish football completed the book. To emphasize the

relevance of the topic “corruption in sport”, the Polish Minister for Sport and Tourism

as well as the German Minister of the Interior were invited to provide a foreword to

the book.

It is worth mentioning, that 75% of the authors wrote their contribution to the manual

/ book without receiving any financial compensation. The others received a

“symbolic fee”, paid out by the PMC. A German publishing company subrogated the

rights on already in German or English language published articles for the

publication in Polish language free of charge.

Because of the high demand, 1.200 copies had to be printed. Originally only 500

copies were planned. Additionally the publication can be downloaded free of charge

on the website of MSiT.

(http://msport.gov.pl/fs/paragraph_download/download_file/464/sport_MSiT.pdf)

One copy of the book is annexed to this report.

The benchmark of this activity has been achieved. 2.6 Conference presenting the report on sports corruption and MSiT anti-

corruption strategy for approx. 100 persons This Conference was the celebratory closing ceremony of component II, this project

and the whole series of anticorruption Twinning projects in Poland. The conference

aimed at sensitizing the (sports-)public for the fight against corruption in general and

in the sector of sports in particular.


38

Due to high-ranking political attendance of

• Mr Miroslaw Drzewiecki, Minister of Sport and Tourism

• Mr Tomasz Siemoniak, Secretary of State, Ministry of Interior and

Administration

• Dr Christoph Bergner, Parliamentary Secretary of State, German MI

• Mrs Julia Pitera – Government plenipotentiary for struggle against corruption,

this Conference was visited by most of the heads of the Polish Sports Associations /

Organisations as well as the mass-media representatives, and the intended target

group has been reached. Altogether the Conference was joined by approximately

150 participants and 20 press representatives.

The Conference was used to review the activities and results of the project

component II. The elaborated manual on sports corruption “Sport bez Korupcji”

(Sport without corruption) was presented to the participants. Further on the Ethic

Code for the Polish sport in detail was introduced to officials of the Polish sports

organisation. All training activities were reviewed.

The benchmark of this activity has been achieved. Overview mandatory results achieved (See Annex I)


39

2 E - IMPACT Excerpt of the work plan of Article 3 of the Twinning Contract:

Intervention logic Benchmarks

Overall Objective Combating and preventing of corruption in the Polish administration

Strengthening the institutional and administrative capacity of the Central Anticorruption Bureau, Preparing and revising its internal procedures in the field of preventing and combating corruption

Working methods of corruption services adapted to EU standards; Better-established and intensified co-operation between corruption services of the EU Member States

Project Purpose

Improving the anticorruption capacity of the Ministry of Sports; Preparing and revising its internal procedures in the field of preventing and combating corruption

Awareness for anti-corruption issues raised among staff of MoS and sport organisations; Working method of MoS adapted to EU standards

CBA The implemented project activities, especially the comprehensive trainings with a

total of approximately 250 participants, the study visits to Belgium, the Netherlands

and Germany of which a total of 27 CBA officers benefited from as well as the best

practice manual which will be used in the future on the one hand as training material

and on the other hand as a reference book, will ensure that the CBA will fulfil its

tasks also by using working and investigation methods applied in other MS.

Within this and the previous projects too, during discussions with their Polish

colleagues and training measures MS experts have permanently addressed deficits

in the area of financial investigation in Poland. This deficient area will now be


40

improved and adapted to EU-standard, the establishment of a Criminal Assets

Recovery Bureau.

Moreover, resulting from various project activities, the cooperation of CBA with other

European anticorruption agencies could be intensified. Trainings and study visits led

to improved contacts to the anticorruption agencies D.I.E. in Hamburg, to the

European institutions OLAF, Europol and Eurojust, to the Dutch Rijksrecherche as

well as to the anticorruption unit (CDBC) of the Belgian Federal Police. As an

(unexpected) result of the cooperation in this and in the previous Twinning-Project, a

formal cooperation agreement between CDBC and CBA has been concluded which

was signed in the beginning of the year 2008 by the chiefs Mariusz Kaminski on the

Polish side and by Johan Denolf on the Belgian side.

So it can be ascertained that the institutional and administrative capacity of the CBA

became strengthened by the project.

Nevertheless, it seems to be questionable whether CBA has yet adapted or is going

to adapt its internal structures and workflows in the course of combating corruption

to those from other member states. According to the law about CBA from 2006, CBA

has the status of a “Special Service”. This status and the respectively

comprehensive competencies on one hand make investigational work easy in many

cases, but on the other hand the cooperation with other national and international

services is more difficult, because of demanding requirements and obligations of

secrecy. During the cooperation with CBA, we got the enduring impression that CBA

will or cannot open outwards – what seems necessary. However, in the Polish

context an adaptation of CBA to the services of the old MS certainly does not

necessarily have to bring along an improvement in combating corruption in Poland.


41

MSiT The conducted project activities for MSiT reached the project purpose and the

overall objectives as well. It was the first time that comprehensive trainings on

anticorruption issues were conducted for the employees of the Ministry (89 persons)

and for employees of the sport associations (320 persons). By these trainings, the

awareness for anticorruption issues could be decisively increased. Furthermore, the

edited manual about corruption in sport will make a contribution to a further

sensitisation in the sector of sport. The manual will be distributed to 1.200

employees in the sector of sport and additionally kept ready for downloading free of

charge from the website of MSiT.

(http://msport.gov.pl/fs/paragraph_download /download_file/464/sport_MSiT.pdf)

These trainings, consisting of a sensitizing and a subject-specific part to the danger

of corruption led to a keen sensitisation of MSiT employees for the risk of corruption

in their own area of responsibility. Possibilities to reduce the risk of corruption have

been highlighted to them, too. It should be expected, that the MS proposals

concerning prevention of corruption will be taken over in internal workflows because

many executive managers have participated in the project activities.

The elaborated Ethic Code is a milestone in the endeavours of the MSiT to prepare

and revise its internal procedures in the field of preventing and combating corruption.

By means of this Ethic Code, the Polish sport has an excellent tool to fight corruption

at its root within the own area of responsibility.


42

2 F - FOLLOW-UP AND SUSTAINABILITY In the year 2010 the new phase of the Polish Anticorruption Strategy will start. The

results not only of the TF 2006 but also Phare 2003, TF 2004 and TF 2005 will be

used in preparing and implementing this third phase of the Anticorruption Strategy.

ESOM will be implemented by the Polish Police and services in the years 2009 and

2010. Trainings are planned for the officers of the Police, Services and the

prosecutors – approximately 200 persons – who shall be “multipliers” of the

knowledge on the ESOM. The planned trainings will be provided by the High School

of the Police. During the next two years, the experts from the High School of the

Police are responsible for administrating and actualizing the ESOM. The

actualisation will include law and the procedures of Polish administration and

administration of justice.

In future, ESOM will be a very important tool for efficient Recovering of Criminal

assets in Poland.

Further on, ESOM can exemplify the possibilities and positive impact of target

oriented co-operation of Polish Services.

The “Manual CBA” is provided to Polish anticorruption services and can have a

positive impact on their work. They receive useful recommendations for improving

their investigations.

The Manual will also be used as textbook in trainings.

In the same way, the CBA will use the materials elaborated in the project in their

future trainings

In the course the first and second Quarter of the year 2009 three remaining trainings

for Central Anticorruption Bureau provided for the activity 1.7. will be conducted.

These trainings did not take place in the year 2008 on account of difficulties with the

assurance of the suitable personnel in adequate time to the beneficiary. The target

of these instructions is the preparation officers CBA to conduct financial

investigations. With their end all benchmarks of the project will be fulfilled.


43

Polish sport administration and Sport Organisations will start activities to prevent the

corruption in their fields of responsibility. These actions will be parallel to the

investigations provided by the Prosecutors Offices.

The “Ethic Code” and the “Sport Manual” will be used in those actions as very

useful tools. Implementation of the “Ethic Code for Sport” will be supported by

Ministry of Sport and Tourism and will reduce the risk of corruption in the Polish

sports.

The results of the training activities will have influence on the work of the Polish

experts of the administration and NGO’s.

The “Manual Sport” is provided to the employees in Polish sport and will have a

positive impact in awareness rising for corruption matters in Sport and will be

used as reference book in cases of corruption.


44

2 G - CONCLUSIONS The projects’ aim “Improvement of the anticorruption activities in Poland” was

completely reached by the conducted project activities. As well the comprehensive

training activities for the repressive and preventive fight against corruption, as the

elaborated sustainable reference books for the Polish LEAs and the Polish sport, as

the Ethic Code for the Polish sport and as the improvement of the issue of

recovering illegal assets led to a noticeable strengthening of the projects’

beneficiaries institutional and administrative capacities in fighting corruption.

2 H – RECOMMENDATIONS: lessons learned

Recommendations in the field of CBA and other Polish LEAs As still stated within the Final Report of PL2005/IB/JH/01, an overall anti-corruption

strategy should be implemented in Poland. Up to date, the Polish endeavours in

combating corruption have been detectable, but a better combining and co-

ordination of the actions of the various LEAs would improve the situation lastingly.

The successful compiling of ESOM points out, that the mutual objectives of affected

LEAs could be achieved much more smoothly while co-operating closely and with

confidence. In that special case, the impetus for cooperation could be given by the

project as an efficient institution for setting impetuses for a general trustful co-

operation of Polish LEAs has not existed yet, but is strongly recommended.

ESOM is also a good peg to recommend in-depth training in financial investigations

and laws relevant for recovering criminal assets. The software ESOM is only a

supporting tool and its usage demands comprehensive knowledge in the relevant

area of application, and for staff of LEA´s untypical fields of law. (q.v. Annex III,

STE’s final report on ESOM)

Improving the cooperation of Polish corruption fighting LEAs premises the possibility

in improving the cooperation with CBA, which is the main actor in fighting against


45

corruption in Poland. The cooperation with CBA was often hampered due to its

status of a special service. CBA is in demand to (re)define its needs and the scope

for secrecy and discretion especially in relationship to other national and

international LEAs. While implementing the project activities, STEs bewailed that

cooperation / communication / knowledge exchange with CBA often went in one

direction only. Such behaviour hampers a continuous und trustful cooperation.

Recommendations in the field of Ministry of Sports and sports organisations It has urgently to be recommended, that MSiT carries forward its endeavours started

recently in preventing corruption in the sports sector. The project activities as well as

the project outcome prepared the ground for effective prevention of corruption, but:

- the Ethic Code which was developed has to be implemented in real life needs

strong support from the leadership in order to be successful,

- the sensitizing trainings for the employees should be periodically refreshed,

possibly by offering obligatory online training modules.

Not to underestimate is the fact that the majority working for sports associations in

their leisure time is honorary staff. Due to this reason these people can be reached

only with a delay in time, and it can be expected that the honorary staff’s readiness

to cooperate will be limited. It can be the case that one can expect cooperation only

during weekends. The educational background and the age of the honorary staff are

extremely mixed, which means that they form a very heterogeneous group. The

honorary staff’s knowledge concerning the structures and processes of the

administration is at a very low level. But on the other hand, you can notice an

unconditional commitment for the sports sector.

Knowledge regarding the sports sector and international competitions and standards

would improve the better understanding of processes and conditions referring the

sports area.


46

Further recommendations referring to this project Given the fact that none of the project partners had experience in editing books (in a

foreign language, which is an additional aggravating factor) the need for time was

underestimated and a lot of avoidable mistakes were made. For editing books in a

foreign language, one should consider the following:

- stringent scheduling is necessary

- duration of approx. six months for good layout work, editing and printing has

to be taken in consideration

- setting of deadlines for the authors

- use of the final style sheet from the beginning

- catalogue of specifications for pictures and graphics

- editor should be perfect as well in the starting as in the target language

- quality assurance for translations is necessary


47

2 I – ANNEXES

Annex I Overview mandatory results achieved

Annex II Assessment report component I

Annex III Final report about ESOM, the electronic manual on recovering illegal

assets.

Annexed: Book “Europe bez Korupcji”

CD-R “ESOM”

Book “Sport bez Korupcji”


48

Annex I:

Overview mandatory results achieved


49

Overview mandatory results achieved

Component ACTIVITY expected

MANDATORY RESULTS

(Components)Deadline

Delay

+/- [months]

expected BENCHMARKS

(Activities) ASSESSMENT to date

Self-assessment Rate: HS (Highly satisfactory),

S (Satisfactory), U (Unsatisfactory)

Project Frame

0.1 Project Kick-off Meeting

1st Project Month (PM)

+ 1

Kick-off Meeting has been conducted

A convenient, well organized Kick-off Meeting on working level took place.

S/HS

0.2 Final Conference of the Twinning Project 15th PM 0

Final Conference and last Steering Committee take place

Final Conference for Polish LEAs, with high-ranking Polish participants took place and gave the opportunity to review not only this, but also the whole EU financed “Polish anticorruption projects”.

HS

0.3 Establish a flexible management structure for steering, monitoring and evaluating the project

None

1st PM + 1

Steering Committee performs its functions

Steering Committee performed its functions in an always fruitful, co-operative and aim-oriented manner

HS


50


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




1

Strengthening the institutional capabilities of CBA

1.1 Analysis of the current situation in the CBA

1st PM 0

Analysis of the current situation completed; Recommendations for improving the work of CBA prepared; Training and Project Plan drafted and agreed

Despite secrecy requirements of CBA, the analysis of its current situation could be successfully conducted and led to concrete training and project plans for the CBA as well as to proposals for enhancing its institutional capacities

S/HS

1.2 Preparation of a corruption map for Polish administration and law enforcement agencies

The staff and the institutional capacities of the CBA in the field of combating and preventing corruption enhanced; Sustainable documents and tools for the further fight against corruption within the Polish administration elaborated and submitted

1st – 3rd PM + 2

Capabilities to prepare a corruption map enhanced; Translated training material provided; Training and project plans for CBA adjusted

The development of empirical methodology proceeded and translated training materials were provided before the training started Only one of two planned workshops took place; lack in Polish information policy about the progress of the corruption map

S/U


51


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




1


1.3 Case studies on best practice regarding corruption investigations including international instruments and one day seminar presenting the elaborated manual for the officers of CBA

1st – 8th PM + 6

Polish and European / International anticorruption practices compiled and compared; Relevance of international anticorruption instruments for Poland examined; 3.000 exemplars of a manual printed and disseminated; Seminar for presenting the manual to CBA officers took place

By means of case studies, Polish, Belgian and German anticorruption practices were compiled and compared effectively. The relevance of the described MS approaches for Poland was examined and became part of the “best practice manual / handbook” 3.000 exemplars of this handbook were printed and dispatched to the Polish LEAs. The book was introduced to the LEAs during the Final Conference.

HS

1.4.1 Implementing the electronic manual on confiscating illegal/criminal income

The staff and the institutional capacities of the CBA in the field of combating and preventing corruption enhanced; Sustainable documents and tools for the further fight against corruption within the Polish administration elaborated and submitted 1st – 12th

PM - 1

Working team formed; Electronic manual adapted; User manual and training materials prepared

The already in Germany existing electronic manual has been successfully adapted to the Polish legal system and the specific Polish needs and is fit for service. A user manual and training materials are prepared

HS


52


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




1


1.4.2 Training on electronic manual on confiscating illegal/criminal income

13th – 15th PM - 1

Approximately 20 trainers trained; Translated training materials provided

During two one week lasting trainings altogether 27 persons have been trained about the legislation of recovering illegal assets and on the use of ESOM. Translated training materials were provided

HS

1.5.1 Training about the controlling of public administration in the field of corruption in public procurement

7th – 9th PM 0

Approximately 25 officers of the CBA are trained; Translated training materials provided

28 officers of CBA have been acquainted with the stated topics and translated training materials were provided

HS

1.5.2 Training about the European legal measures and international practices in combating corruption, with special consideration of international co-operation


7th – 12th PM - 1


124 officers of CBA have been trained in the agreed matters and translated training materials were provided

HS


53


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




1


1.6.1 Training about the strategies of anticorruption offices

4th – 6th PM 0

CBA high level officers familiarized with tools and strategies from Union Member States to receive efficient and successful results in disclosure corruptive cases; Translated training materials provided

38 officers of CBA succeeded in familiarising with tools and strategies from Union Member States to receive efficient and successful results in disclosure corruptive cases as well as translated training materials were provided Participants belonged “only” to medium management of CBA

S

1.6.2. Training about international cooperation in combating corruption

4th – 6th PM + 2

Approximately 20 high officials of the CBA trained; Translated training materials provided

33 officials of CBA have been trained in the stated topics and translated training materials were provided Participants belonged “only” to medium management of CBA

S

1.6.3 Training about social communication in the field of combating corruption


10th – 12th PM - 5


24 officers of CBA have been trained in the stated topics and translated training materials were provided Participants belonged “only” to medium management of CBA

S


54


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




1


1.7 Training about the Polish anticorruption law for approximately 140 staff of the CBA

4th – 12th PM + 3

Approximately 140 participants trained; Training materials provided

Up to date approx. 80 officers of CBA have been trained, training materials were provided. Due to an agreement of MSWiA and CBA, the further trainings will take place in the year 2009

S/U

1.8.1 Practical introduction of web-based anti-corruption tools and special undercover techniques at D.I.E. Hamburg

10th – 12th PM - 2

5 participants deepened their knowledge about best practice tools in combating corruption

7 Polish participants have been well acquainted with the practical use of tools in theory up to that point

HS

1.8.2 Practical introduction of operative procedures in Belgium and strengthening of CBA’s ability for international cooperation


10th – 12th PM - 7

Consultations with the European institution responsible for the fight against corruption took place

Contacts to European institutions have been strengthened and working procedures of the Belgium Police were presented

HS


55


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




2

Ministry of Sports

2.1 Analysis of the current situation in the field of anticorruption activities within the responsibility of MoS

1st – 3rd PM + 1

Analysis of current situation completed; Report about analysis in MoS

The analysis of the current situation has been completed and reported about in the MSiT

HS

2.2 Presentation of analysis incl. recommendations to leadership of MoS

1st – 3rd PM + 2

Workshop carried out; Training plans and contents of handbook agreed

The MSiT leadership became familiarising with the phenomenon of corruption in general and within the field of their responsibility in particular; Training plans and contents of handbook agreed

HS

2.3 Training about best practices in combating sport corruptions

The staff and the institutional capacities of the Ministry of Sports and the Polish sport organisations with special regard for combating and preventing corruption enhanced; Sustainable documents and tools for the further fight against corruption within the Polish administration elaborated and submitted

4th – 9th PM 0

Approximately 80 employees of the Ministry of Sports trained; Translated training materials provided

89 employees of the Ministry of Sport have been trained in the agreed matters and translated training materials were provided

HS


56


MANDATORY RESULTS


Delay

+/- [months]

expected BENCHMARKS




2

Ministry of Sports

2.4 Expanding knowledge, skills and practical solutions among sports representatives

4th – 9th PM + 1

Approximately 200 participants of sport organisations trained; Translated training materials provided

320 participants of sport organisations have been trained successfully and translated training materials were provided

HS

2.5 Prepare and print the report on sport corruption

4th – 6th PM + 9

Report prepared and printed (500 exemplars)

The Report / Book was printed; Due to an increased demand of the Polish partner, 1.200 books were printed. The book can be downloaded on MSiT website

HS

2.6 Conference presenting the report on sports corruption and MoS anti-corruption and MoS anti-corruption strategy for approximately 100 persons

The staff and the institutional capacities of the Ministry of Sports and the Polish sport organisations with special regard for combating and preventing corruption enhanced; Sustainable documents and tools for the further fight against corruption within the Polish administration elaborated and submitted

10th PM + 5 Conference organised and carried out

The conference took place and was visited by ca. 150 sports representative and 20 reporters High ranking political participation

HS


57

Annex II

Assessment report Component I “CBA”


58

Description of the Central Anti-Corruption Bureau (CBA) The following report was made by the experts and is available in full in the RTA office. In consideration of the distinctiveness of special service work, sensitiveness of data placed in this report and sanctions arising from violation of national law among other things about protection of confidential information some of parts had to be reduced and cannot be published in this report. Introduction The establishment of CBA has received a lot of attention, both domestically and in abroad, especially through the foreign embassies in Warsaw. In order to support the Polish Administration in combating corruption, the European Union decided to implement a specific Twinning Project (“Improvement of the anticorruption activities in Poland”), whose one component focuses on CBA. The first activity of the CBA component is ‘a description of the situation in CBA’. Two experts were asked to highlight the organisation, structure and working methods of the CBA as well as training needs of several departments; this information will be utilised by other experts in charge of training and workshops to be provided in the framework of this Twinning Project later this year and in 2008. A good knowledge about an organisation and understanding of needs and expectations are essential conditions for the success of the assistance provided, based on exchange of experiences and good practices. The authors would like to emphasise that this report is not a comprehensive and exhaustive analysis of the whole organisation but rather - due to time constraints - an overall impression with a number of highlights, which exemplify several statements. Due to the fact that CBA has operated only for a year, most investigations are still pending. Therefore, it is not possible at the moment to have an objective evaluation of the real efficiency of this young special law enforcement agency. On 24.9.2007 there was a briefing with the RTA, Mr. Klaus Kunze; the Polish component leader, Mr. Wieslaw Jasinski; the RTA-A., Mr. Krzysztof Dachterski; and two Short Term Experts (STEs), Head of the Belgian Central Service for Corruption Combat (CDBC), Mr. Alain Luyckx; and Dr Pawel P. Mlicki. During the briefing expectations and scope of the assignment were discussed and agreed. Mr. Luyckx and Dr. Mlicki drafted the report. A plenary meeting of The Twinning Project RTA, Mr. Klaus Kunze and both STEs with the top management of CBA including the Head of CBA Mr. M. Kaminski and the heads of departments, took place on 24.9.2007. At this meeting the scope of the whole Twinning was presented. Moreover, the assignment to prepare a report on CBA and the experts to carry out the assignment were introduced to the CBA representatives, and a work schedule was agreed.


59

This report is based on bilateral open discussions with representatives of several departments of CBA (see below) and analysis of several documents regulating duties, rights and responsibilities of CBA. All discussions took place on 25 and 26 September 2007 in the CBA premises in Warsaw. The experts would like to extend their gratitude to the CBA management and all involved employees for their availability, co-operation and willingness to answer very many questions. According to the provisions of the CBA Bill of 9 June 2006 (for some basic information regarding CBA see the English version of the CBA website at http://www.cba.gov.pl/portal/en/), the Central Anticorruption Bureau is competent in: 1. Criminal investigation (crime identification, detection of a perpetrator and

bearing criminal responsibility in consequence) in particular against State and self-government institutions' activities, political parties' financing, justice, elections and referendums, public procurement, credibility of documents, property, economic turnover, tax duties, grant and subvention settlements

2. Corruption prevention, supported by special instrument called 'controlling

activities', which controls the breaching of the anticorruption law (e.g. limitations of running of a private business by public officials, privatization and commercialization, financial support, public procurements, credit guarantees; as well as verifying the correctness and authenticity of public officials declarations and running of a private business declarations).

3. Anticorruption information (a special CBA obligation is to provide the

Parliament the information about the results of its activities as well as provide the report to the Prime Minister and Parliamentary Special Services Committee until 31 March of each year at the latest).

4. Operational activities. The public administration bodies, self-government institutions and other State institutions are obliged to cooperate with CBA in order to ensure performance of CBA tasks. CBA is financed by the State. The Central Anti-Corruption Bureau is a centralised, government administration service that combats corruption in public and private sectors, and protects basic State’s economic interest. The CBA Bill was adopted on 9 June 2006 and entered into force on 24 July 2006. CBA is supervised by the Prime Minster (PM). The CBA Head is appointed and recalled by the PM for a period of 4 years, which may be prolonged once for another 4 years. The appointment and recall of the CBA Head requires consent of the President, the Committee for Special Services and the Parliamentary Special Services Committee.


60

CBA has the following organisation structure2:

Operational-Investigative Board Control Proceedings Board Analyses and Registry Board Operational Techniques Board Cabinet of the Head (including International Co-operation Unit, Social

Communication Unit and the Secretariat) Security Department Personnel and Training Department Finance Department Logistics Department Independent Legal Division Independent Inspection Division Internal Auditors Unit

The authors of this report talked to representatives of those Boards, Departments, Divisions and Units that are marked boldface in the above list. In the following, results of these talks can be found.

1. International Co-operation Unit in the Cabinet of the CBA Head

(…)

Expectations regarding the Twinning Project (training): o How to apply for and handle European funds? o To obtain more information about the way their foreign partners, such

as Europol, Eurojust, OLAF, work internationally. o What are the procedures concerning operational information

exchange.

2. Analyses and Registry Board

(…) Expectations regarding the Twinning Project (training):

o Exchange of experience and practice with other analysts, among others from the Belgian CDBC.

o Learning methods for creating a situation report of corruption in general.

3. Operational-Investigative Board

(…)

Expectations regarding the Twinning Project (training):

2 Names of units that make the CBA organisation and are referred to in this report are taken from the official CBA documents.


61

o Joint investigation and procedures regarding seizure and confiscation of illegal assets.

o Obtaining more information about international co-operation. o Exchange of experience about trans-national undercover operation

and observation.

4. Control Proceedings Board (a number of legal documents in Polish was provided)

(…) Expectations regarding the Twinning Project (training):

o EU benchmarking: procedures, instruments, definitions of assets etc. applied at controls carried out in other EU countries.

o International exchange of information about real estate, money flow etc. in order to facilitate recover of illegal assets.

o Investigations on procurements. o Control of privatization process. o Risk analysis to direct controls.

5. Independent Legal Division

(…)

Expectations regarding the Twinning Project (training):

o In case-studies prepared for and discussed at workshops, to take into consideration specifications of the Polish legal system.

o Cross-border legal aspects of international co-operation (e.g. regarding money flow, seizure of illegal assets).

o Legal benchmarking.

6. Independent Inspection Division

(…) Expectations regarding the Twinning Project (the Division’s representatives formulated two conditions concerning the training: it must be organised in Poland and without involvement of other departments’ employees):

o To have one person trained in handling a polygraph. o Other training needs have not been specified. o (The Section needs a van for covert long-term observations, but it

supposedly falls beyond the scope of the Twinning project).

7. Personnel and Training Department

(…) Expectations regarding the Twinning Project:

o How to develop corporate identity and organisational culture in CBA. o How to develop a carrier path for employees. o How to evaluate personnel and teams: criteria and instruments. o How to improve the recruitment process: criteria and instruments.


62

Annex III

Final report “ESOM”


63

Dr. Johann Podolsky Stuttgart, den 14.11.2008 Roland Baier Landeskriminalamt Baden-Württemberg

Project report

Improvement of the anticorruption activities in Poland Transition Facility 2006

Activity 1.4.1. Implementing the electronic manual on confiscating illegal / criminal income 1. Aufgabenstellung Im Rahmen der Activity 1.4.1 war es Aufgabe, ein elektronisches Programm zur Vermögensabschöpfung nach deutschem Vorbild (Abschöpfer Archiv) zu entwickeln, das geeignet ist, die Vermögensabschöpfung generell in Polen zu intensiveren und zur Vereinfachung von Verfahrensabläufen beizutragen. Das Programm soll sowohl für die tägliche Praxis wie auch für die Aus- und Fortbildung tauglich sein. Ein erstes Koordinierungsgespräch hierzu fand vom 26. – 28. März 2007 in Warschau mit Vertretern der Justizministeriums, des Innenministeriums und des CBA statt. Dabei wurde das deutsche Programm „Abschöpfer Archiv“ inhaltlich vorgestellt und auf wesentliche Bestandteile und Inhalte eingegangen. Das zu erstellende DV-Programm für Polen soll unter Anleitung der beiden Experten aus Baden-Württemberg nach polnischem Recht und Gegebenheiten mit Hilfe polnischer Experten erstellt werden. Hierzu wurde ein Vorschlag über

die Zusammensetzung einer Projektgruppe die technische Ausstattung den zeitlichen Umfang

anhand der Erfahrungen in Deutschland und auch in Tschechien erstellt (siehe Anlagen Aufwand Polen und 1.4.1.Termine). Ziel war es, das Programm möglichst innerhalb eines Jahres zu erstellen. 2. Projektplanung / -arbeiten Nach der Zustimmung durch das MSWiA erfolgte die Aufnahme der Projektarbeit entsprechend der zeitlichen Vorplanung. Es waren folgende Termine vorgesehen: 22. – 26.10.2007 10. – 14.12.2007 18. – 22.02.2008 07. – 11.04.2008 02. – 06.06.2008


64

14. – 18.07.2008 15. – 19.09.2008 Schulung Projektteilnehmer 27. – 31.10.2008 Schulung CBA Die Termine im September und Oktober 2008 als Schulungsveranstaltungen mussten ergänzend aufgenommen werden, da die Projektarbeiten zuvor nicht wie vorgeplant vorangeschritten sind und darüber hinaus von Seiten des CBA der Wunsch geäußert wurde, eine separate Schulungsveranstaltung durchführen zu wollen. 3. Projektteilnehmer An der Erstellung des DV-Programms beteiligten sich Mitarbeiter folgender Behörden:

Justizministerium / Landesstaatsanwaltschaft / Staatsanwaltschaften Hauptkommandantur / Ermittlungsbüro Polizeihochschule Szczytno CBA-Antikorruptionsbüro Grenzschutz Gendarmerie / Feldjäger

4. Projektorganisation: Aus Gründen der Effizienz erfolgte die Einteilung der Projektmitglieder in zwei Gruppen: Aufgabenstellung der Gruppe „Taktik“ (Roland Baier): 1. Die inhaltliche Zusammenstellung / Strukturierung des zu erstellenden DV-

Programms einschließlich der Auswahl der DV-Struktur und der Programmierung

2. Sammlung und Aufbereitung von Informationsquellen der polizeilichen Ermittlungsarbeit

3. Erstellen von Musterformularen für polizeiliche Ermittlungshandlungen anhand bereits vorhandener polnischer und auch deutscher Vorlagen

4. Aufbereitung der Musterformulare für die verschiedenen Belange der im Projekt beteiligten Ermittlungsbehörden

5. Erstellen von Ablaufdiagrammen der Ermittlungsarbeit 6. Erarbeiten von Vorschlägen für besondere Aufbauorganisationen bei

besonderen Anlässen 7. Einarbeiten des Handbuches für Vermögensabschöpfung, erstellt durch die

Autoren und Projektmitglieder Dariusz Najmola, Krzysztof Wiciak und Krzysztof Liszewski

Da der Arbeitsgruppe „Taktik“ ein breites Aufgabenfeld einschließlich der Programmierung zukam, war hier der größere Personalbedarf gegeben. Zusammensetzung: Ermittlungsbeamte

der Hauptkommandantur /Ermittlungsbüro o Jacek Sztandar, o Pawel Szyfter, o Maciej Strzelczyk,


65

o Toasz Safjanski, o Dariusz Najmola, o Krzysztof Lizewski

der Polizeihochschule Szczytno o Wojciech Anielski, o Krzysztof Wiciak o Jan Kudrelek

der Gendarmerie / Feldjäger o Jaroslaw Pilski

des Grenzschutzes o Krzysztof Traczyk,

des CBA o Arkadiusz Gorzkiewicz

Dolmetscher: Krzysztof Dachterski und Malgorzata Krukowska Aufgabenstellung der Gruppe „Recht“ (Dr. Johann Podolsky): 1. Erstellen von Lehrunterlagen / Skripten zu

den materiellen Vorschriften der Vermögensabschöpfung nach dem KK den formellen Vorschriften der Vermögensabschöpfung

(Zwangsvollstreckung nach der Strafprozessordnung KPK und der Zivilprozessordnung KPC

den zivilrechtlichen Vorschriften des Vertragsrechts, Bereicherungsrechts, Sachenrechts, Familienrechts, Schadensrechts, Grundstücksrechts, Abtretung von Forderungen, Treuhand- und Scheingeschäfte, Gesellschaftsrechts

Beiziehen aller relevanten Gesetzestexte

2. Erstellen von Musterformularen zur vorläufigen Vermögenssicherung (Sicherstellungsbeschlüsse auf der Grundlage verschiedener Rechtsnormen der Art. 291 ff KPK)

Zusammensetzung:

Justiz / Landesstaatsanwaltschaft o Jolanta Przybylko, o Piotrek Starzynski o und teilweise in Vertretung einzelne Staatsanwälte

CBA o Agnieszka Dalecka, o Agnieszka Kolakowska

Polizeibeamte der Hauptkommandantur / Ermittlungsbüro o Krzysztof Lizewski

Polizeihochschule Szczytno o Krzysztof Wiciak, o Jan Kudrelek und o Piotr Kubinksi (3 Projektwochen)

Dolmetscher: Pawel Gugala


66

Die Projektarbeiten erfolgten zu den geplanten Terminen jeweils von Montag – Freitag in regelmäßigen Abständen. Anfangs im MSWiA, ab Dezember 2007 dann im Lazienkowski Hotel des MSWiA. 5. Struktur / Aufbau des ESOM In der ersten Arbeitswoche war u.a. der strukturelle Aufbau des DV-Programms ESOM (Elektroniczny System Odzyskiwania Mienia) Gegenstand. Die Programmierung erfolgt im Format xml. Analog dem deutschen „Abschöpfer Archiv“ legten sich die Projektmitglieder auf folgenden Aufbau fest: 1. Start 2. Grundlagen 3. Formulare 4. Taktik 5. Informationsquellen 6. Vorschriften 7. Internationales 8. Kontakte 9. Sammelmappe 10. Hilfe Register 2: Grundlagen: Unter Grundlagen fallen die Lehrunterlagen / Skripte zu den materiellen, formellen und zivilrechtlichen Vorschriften. Register 3: Formulare: Hier sind Mustervorlagen für

Auskunftsersuchen Informationsgewinnung Sicherstellungsbeschlüsse

eingestellt. Register 4: Taktik: Hier befinden sich taktische Hinweise für die polizeiliche Ermittlungsarbeiten. So z.B. Vorschläge für Besondere Aufbauorganisationen anlässlich der Einrichtung von Ermittlungskommissionen, Ablaufdiagramme für Ermittlungen usw. Register 5: Informationsquellen: Hier sind Links zu öffentlichen Verzeichnissen im Internet, Auflistungen und Adressen von jeglichen Auskunftsstellen erfasst, die Recherchen zur Vermögensaufspürung erlauben. Register 6: Vorschriften: Dieses Register enthält Gesetzestexte, auf die im Rahmen der Finanzermittlungen gegebenenfalls zugegriffen werden kann. Register 7: Internationales: Hier sind u.a. Auskunftsstellen im Ausland (Verbindungsbeamte) sowie internationale Verträge und Abkommen hinterlegt. Register 8: Kontakte:


67

Dieses Register beinhaltet bzw. ermöglicht die Ablage von Kontaktinteressen polizeiintern, justiziell und auch international. Register 9: Sammelmappe: Hier befinden sich Unterlagen, die keinen Bezug zu einem der bestehenden Register haben und auch vom User selbständig bestückt werden können. 6. Arbeitsinhalte / - ziele Arbeitsgruppe „Taktik“ Die Arbeitsgruppe „Taktik“ nahm sich der inhaltlichen Ausgestaltung aller Register des ESOM mit Ausnahme des Registers 2 „Grundlagen“ an. Sofern sich Inhalte des deutschen „Abschöpfer Archivs“ zur Aufnahme eigneten, wurden diese ins Polnische übertragen. Ansonsten erfolgte die Aufbereitung durch die Projektmitglieder, orientiert an polnischen Verhältnissen / Möglichkeiten. Insbesondere das von den Kollegen Lizewski, Wiciak und Najmola erstellte Handbuch eignete sich hierfür als Grundlage. Die Hauptarbeit leisteten die Kollegen von der Hauptkommandantur - Ermittlungsbüro und der Polizeihochschule Szczytno. Arbeitsgruppe „Recht“ In der Arbeitsgruppe „Recht“ wurden die gesetzlichen Regelungen zur Vermögensabschöpfung (materiell und formell) im Einzelnen aufgearbeitet und zu Skripten zusammengefasst. Soweit bereits obergerichtliche Entscheidungen oder Beschlüsse der Staatsanwaltschaften oder Gerichte vorliegen, wurden sie von den Teilnehmern erhoben und in das jeweilige Skript eingearbeitet. Es konnte zudem auf Erfahrungswissen der Teilnehmer zurückgegriffen werden. Schwieriger gestaltete sich die Situation bei der Erstellung von Skripten zu den einzelnen Zivilrechtsbereichen. Das Wissen über die für die Vermögensabschöpfung notwendigen polnischen zivilrechtlichen Vorschriften war bei den meisten Teilnehmern dieser Gruppe nicht zielführend vorhanden, so dass von Seiten der Experten die Einbeziehung eines – wie im Übrigen bereits bei Projekteröffnung beschrieben – Juristen mit Zivilrechtskenntnissen angeregt wurde. Weite Teile des Zivilrechts sind identisch mit dem deutschen BGB; dennoch gibt es einige Besonderheiten wie im Familienrecht, die Auswirkungen auf Vermögenszuordnungen haben. Auf Initiative der Kollegen Liszewski, Najmola und Wiciak konnte Herr Piotr Kubinski von der Polizeihochschule Szczytno gewonnen werden. Er hatte zum Zivilrecht bereits eine umfangreiche Ausarbeitung erstellt, auf die teilweise zurückgegriffen werden konnte. Herr Kubinski schied Ende April 2008 wegen des Eintritts in den Ruhestand aus dem Projekt aus. Ersatz für ihn konnte zunächst nicht gefunden werden. Dies verzögerte letztlich die angestrebte Erstellung der Einzelskripte zum Zivilrecht. Erst im September 2008 nahm mit Frau Woloszka von der Polizeihochschule Szczytno an der Multiplikatorenschulung eine Juristin mit Schwerpunkt Zivilrecht teil. Die zu diesem Zeitpunkt noch notwendige redaktionelle Aufarbeitung der Zivilrechtsskripte wird unter ihrer Beteiligung und Beratung in den nächsten Monaten zu Ende gebracht.


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Die inhaltliche Arbeit zu beiden Bereichen ist in den jeweiligen Mission Reports zu den einzelnen Arbeitswochen beschrieben. Multiplikatorenschulung, Schulungsveranstaltung CBA und Aus- und Forbildung zur Vermögensabschöpfung Multiplikatorenbeschulung: In der Woche 15.-19. September erfolgte die Beschulung der im Projekt mitwirkenden Vertreter in den Rechtsbereichen der Vermögensabschöpfung wie auch in Schwerpunkten des Zivilrechts. Insbesondere Treuhandgeschäfte oder Vermögensübertragungen wurden angesprochen, die vielfach in der Ermittlungspraxis vorkommen. Am Rande dieses Seminars wurden noch Teile des Zivilrechts aufgearbeitet und in das ESOM eingepflegt. Beschulung CBA: Auf Anregung des CBA erfolgte eine separate Schulungsveranstaltung für Mitarbeiter des CBA in der Woche 27.-31.Oktober 2008. Authentische Fallgestaltungen und Erfahrungen aus der Bearbeitung von Korruptionsdelikten wurden auf polnische Verhältnisse (Tatbestände, Möglichkeiten der Vermögensabschöpfung) beispielhaft übertragen. Es zeigte sich, dass gleichartige Fallkonstellationen und Problembereiche in Polen gegeben sind. Die Teilnehmer dieses Seminars waren sehr interessiert und engagiert. Aus- und Fortbildung zur Vermögensabschöpfung: Eine umfassende Aus- und Fortbildung für freigestellte Sachbearbeiter für Vermögensabschöpfung konnte im Projekt nicht durchgeführt werden und war auch nicht Gegenstand des Projektes. Sie ist jedoch untrennbar mit dem Unterstützungs bzw. Hilfsprogramm ESOM verbunden. Es wird jedoch für die polnische Polizei angeregt, speziell freizustellende Sachbearbeiter für Vermögensabschöpfung in einem ca. 6-wöchigen Seminar auszubilden. 7. Fazit: Vorgesehen war, dass die Projektteilnehmer zwischen den Projektwochen anhand von festgelegten Arbeitsplänen Aufträge bis zum nächsten Treffen erledigen. Dies ließ sich nicht immer umfassend in der angestrebten Form umsetzen, da die Mitarbeiter im Projekt von ihren Behörden zunächst jeweils nur für die Projektwochen, nicht aber für die zwischenzeitlich zu erledigenden Arbeitsaufträge freigestellt wurden. Am 09.April 2008 wurde deshalb für die Vorgesetzten / Dienststellenleiter der beteiligten Dienststellen eine Informationsveranstaltung durchgeführt, um die Ziele des Projekts und dessen Produkt vorzustellen. Danach räumten die Vorgesetzten ihren Mitarbeitern Arbeitstage zwischen den Projektwochen ein, um selbständig am ESOM weiterzuarbeiten. Im Juni 2008 wurde zur Fertigstellung von ESOM das Projekt auf Antrag um eine Woche verlängert. Schwierig gestaltete sich die Aufbereitung der Rechtsgrundlagen in der Arbeitsgruppe „Recht“ durch den oftmaligen Wechsel der Mitglieder von Seiten der Justiz und auch des CBA. Teilweise nahmen Vertreter nur wenige Tage teil und


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waren über das Vorhaben nur unzureichend informiert. Lediglich Frau Dalecka von CBA Danzig und Frau Przybylko von der Landesstaatsanwaltschaft nahmen an den meisten Arbeitswochen teil. In der Arbeitswoche 14.- 18. Juli 2008 war kein Vertreter der Justiz zugegen, ebenso nicht in der Multiplikatorenschulung 15. – 19. September 2008. Dem Wissen und Erfahrungsschatz, der Motivation und dem Engagement insbesondere der Projektmitglieder Krzysztof Wiciak, Krzysztof Lizewski, Dariusz Najmola und Wojciech Anielski ist es zu verdanken, dass die Rechtsskripte und sonstigen Beiträge für das ESOM letztlich termingerecht von polnischer Seite aus verfasst, überarbeitet, fertig gestellt und auch durch externe Juristen (so z.B. Richter) auf deren Stimmigkeit geprüft werden konnten. Mit Wojciech Anielski stand zudem ein äußerst kompetenter DV-Spezialist zur Verfügung. Der größte Bedarf zur Nutzung von ESOM dürfte auch bei der Polizei bestehen; sowohl in der Praxis wie auch in der Aus- und Fortbildung. Das ESOM ist lediglich als Hilfsinstrument in der Vermögensabschöpfung zu sehen. Es ersetzt nicht die rechtlich fundierte Analyse und Bewertung von Sachverhalten. Aus diesem Grunde sind die im ESOM unter Register „Grundlagen“ eingestellten Rechtsskripte erarbeitet worden. Sie sollen der intensiven Beschulung von Spezialisten auf diesem Gebiet dienen. Siehe hierzu auch Anlage „Konzeption“, die von den Experten empfohlen wird. Dr. Johann Podolsky Roland Baier Kriminaldirektor Erster Kriminalhauptkommissar


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Intensivierung der Vermögensabschöpfung bei Polizei und Justiz in Polen I. Konzeption Vermögensabschöpfung Ausgehend von den Erfahrungen in Deutschland und insbesondere in Baden-Württemberg empfehlen wir dem Vertragspartner die Erstellung einer Konzeption für Vermögensabschöpfung. Diese Konzeption soll die folgenden Bereiche umfassen: 1. Einrichtung einer Zentralstelle bei den jeweiligen Polizeien und ggf. auch bei der

Staatsanwaltschaft /Justiz (siehe Anlage 3-Säulen-Modell in BW) 2. Gezielte Fortbildung von Polizeibeamten in mehrwöchigen Seminaren mit

Schwerpunkten Zivilrecht, materielles und formelles Recht, Taktik unter Einbeziehung des ESOM

3. Vollständige Freistellung der fortgebildeten Polizeibeamten von sonstigen Aufgaben 4. Benennung von Ansprechpartnern bei der Justiz (Staatsanwaltschaften) 5. Jährliche Dienstbesprechung zum Erfahrungsaustausch zwischen Polizei und Justiz 6. Weiterentwicklung / Aktualisierung des Archiwum ESOM. Die Federführung sollte beim

Innenministerium / bei der Polizei liegen.

Zu Ziff. 1: Einrichtung einer Zentralstelle Die Zentralstelle sollte mit erfahrenen Ermittlungsbeamten aus den Bereichen Wirtschaftskriminalität und OK-Ermittlungen und auch Juristen besetzt werden, um den im Lande bei den Polizeidienststellen tätigen Polizeibeamten als Ansprechpartner mit Rat und Tat zur Seite stehen zu können. Die Zentralstelle ist auch verantwortlich für die Gestaltung der Fortbildung (im Zusammenwirken mit der Fachhochschule für Polizei) unter Aufbereitung von authentischen Fallgestaltungen und Erfahrungen aus der staatsanwaltschaftlichen und gerichtlichen Praxis. zu Ziff. 2: Gezielte Fortbildung Die Polizeibeamten (auch Staatsanwälte, Richter) müssen gezielt in den zivilrechtlichen, materiell-rechtlichen und formell-rechtlichen Vorschriften der Vermögensabschöpfung wie auch taktisch fortgebildet werden. Wesentlicher Inhalt ist das Verständnis und die Kenntnis der relevanten Vorschriften und der Sachzusammenhang dieser Rechtsgebiete. Die Beschulung im Recht soll anhand praktischer und authentischer Fallgestaltungen erfolgen. Fallbearbeitungen sollten auch anhand des ESOM erfolgen. Die Fortbildung sollte folgende Kernbereiche umfassen: 1. Zivilrecht mit Vertragsrecht, Schein- und Reuhandgeschäften, Sachenrecht,

Schadensrecht, Gesellschaftsrecht 2. Materielles Recht mit den Vorschriften des Strafgesetzbuches zum Verfall (Art. 44, 45,

52 KK u.a.) 3. Formelles Recht mit den Vorschriften Art. 292, 217 ff KPK und den

Pfändungsvorschriften des KPC 4. Taktische Ermittlungen zur Feststellung von Vermögenswerten und die Vorbereitung

der Beschlagnahme / Pfändung 5. Arbeiten / Umgang mit dem Archiwum ESOM Die Aufgabenverteilung in der Fortbildung sollte zwischen Aus- und Fortbildungsstellen und der Polizei festgelegt werden. Dabei sollten praktische Erfahrungen der Ermittlungsdienststellen gebührend berücksichtigt werden. Es wird ein Seminar „Vermögensabschöpfung“ mit einer Dauer von mindestens 4-6 Wochen empfohlen. Die Spezialfortbildung in Baden-Württemberg erfolgt beispielsweise in einem 8-wöchigen Seminar „Verfahrensintegrierte Vermögensabschöpfung – Modul A“. Die weitere Fortbildung ist modulartig aufgebaut.


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Im Rahmen der Projektarbeit zu ESOM wurden die Lehrinhalte für ein 6-wöchiges Seminar von den polnischen Kollegen konzipiert. Zunächst wäre an eine Grundversorgung – ausgehend von einer Zentralstelle - zu denken. Sukzessive kann die Anzahl der „Vermögensabschöpfer“ durch Fortbildung gesteigert werden. zu Ziff. 3: Vollständige Freistellung der fortgebildeten Polizeibeamten Die fortgebildeten Polizeibeamten sollen ausschließlich für diesen Bereich freigestellt werden und als Serviceeinheit fungieren; sowohl von der einzurichtenden Zentralstelle aus wie auch auf regionaler Ebene. Anzahl: In Baden-Württemberg gab es zeitweise eine Zielvorstellung von einem Vermögensabschöpfer bezogen auf 350 Vollzugsstellen Polizei. (1:350) zu Ziff. 4: Benennung von Ansprechpartnern bei der Justiz Es liegt in der Entscheidungskompetenz der Justiz (Staatsanwaltschaften / Gerichten), wie die Vermögensabschöpfung intensiviert und organisiert werden kann. Einzelne Staatsanwälte sind für den Bereich der Vermögensabschöpfung freigestellt oder dienen als Ansprechpartner für andere Staatsanwälte / Richter) zu Ziff. 5: Jährliche Dienstbesprechung zum Erfahrungsaustausch Polizei – Justiz Jährlich sollte eine ein- bis zweitägige Dienstbesprechung zwischen den Vermögensabschöpfern der Polizei und den Ansprechpartnern bei der Justiz veranstaltet werden, um Erfahrungen aus der Fallbearbeitung, der Gesetzesanwendung und auch der gerichtlichen Spruchpraxis aufzugreifen und auszutauschen. zu Ziff. 6: Einberufung einer Gruppe zur Fortentwicklung / Aktualisierung des ESOM Die Datenpflege und Fortentwicklung sollte durch ein feststehendes Gremium gesichert werden. Die Federführung sollte beim Innenministerium / bei der Polizei liegen, da

die Polizei wegen des breiten Aufgabenspektrums den größten Bedarf hat, die sonstigen Ermittlungsorgane eingeschränkte Geschäftsfelder bearbeiten, bei der Polizeihochschule Szczytno und beim Vollzugsdienst der Polizei und auch

bereits entsprechende Lehrkräfte vorhanden sind (Autoren des ESOM) die Programmierung von der Polizeihochschule Szczytno erfolgt ist die praktischen Erfahrungen der Ermittlungsdienststellen sollten berücksichtigt

werden


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Dr Johann Podolsky Stuttgart, 14.11.2008 Roland Baier Krajowy Urząd Kryminalny Badenia-Wirtembergia

Project report

Improvement of the anticorruption activities in Poland Transition Facility 2006

Activity 1.4.1. Implementing the electronic manual on confiscating illegal / criminal income 1. Zadanie Celem działania 1.4.1 było stworzenie w oparciu o wzorce niemieckie (Abschöpfer Archiv; pol. Archiwum Odzyskiwania Mienia - przyp. tłum.) elektronicznego programu do odzyskiwania mienia, który mógłby przyczynić się do ogólnego zintensyfikowania odzyskiwania mienia w Polsce oraz do uproszczenia procedur w tym zakresie. Program ten powinien nadawać się zarówno do codziennej pracy jak też do zastosowania w toku kształcenia i doskonalenia zawodowego. Pierwsze spotkanie w celu koordynacji działań w przedmiotowym zakresie odbyło się w Warszawie w dn. 26. – 28. marca z przedstawicielami Ministerstwa Sprawiedliwości, Ministerstwa Spraw Wewnętrznych i Administracji i CBA. W trakcie spotkania zaprezentowano funkcjonalności niemieckiego programu „Abschöpfer Archiv“ oraz omówiono jego poszczególne moduły i treści. Planowany program elektroniczny dla zastosowania w Polsce powinien powstać pod kierunkiem obydwu ekspertów z Badenii-Wirtembergii w zgodzie z polskim prawem i uwarunkowaniami oraz z pomocą polskich ekspertów. W tym celu sformułowano propozycję dotyczącą

składu zespołu roboczego wyposażenia technicznego ram czasowych

opierając się przy tym na doświadczeniach z Niemiec oraz z Czech (patrz zał. Niezbędne nakłady Polska i 1.4.1. Terminy). Celem było stworzenie programu w okresie 12 miesięcy.


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2. Planowanie projektu / praca w ramach projektu Po wyrażeniu zgody przez MSWiA podjęto prace nad realizacją projektu zgodnie z przyjętym harmonogramem. Ustalono następujące terminy: 22. – 26.10.2007 10. – 14.12.2007 18. – 22.02.2008 07. – 11.04.2008 02. – 06.06.2008 14. – 18.07.2008 15. – 19.09.2008 szkolenie uczestników projektu 27. – 31.10.2008 szkolenie CBA Terminy w miesiącach wrześniu i październiku 2008 r. musiały zostać włączone dodatkowo do harmonogramu, ponieważ praca nad realizacją projektu nie postępowała zgodnie z przyjętym wcześniej planem; ponadto CBA wyraziło życzenie przeprowadzenia oddzielnego szkolenia dla tej służby. 3. Uczestnicy projektu W tworzeniu programu komputerowego brali udział przedstawiciele następujących urzędów:

Ministerstwo Sprawiedliwości / Prokuratura Krajowa / Prokuratury Komenda Główna / Centralne Biuro Śledcze Wyższa Szkoła Policji Szczytno Centralne Biuro Antykorupcyjne Straż Graniczna Żandarmeria Wojskowa

4. Organizacja projektu Ze względu na jak najwyższą wydajność pracy podzielono zespół na dwie grupy: Zadania grupy „Taktyka” (Roland Baier): 8. Zestawienie treści / stworzenie struktury opracowywanego programu

komputerowego włącznie z wyborem odpowiedniej struktury danych elektronicznych oraz programowaniem

9. Zebranie i opracowanie źródeł informacji wykorzystywanych w ramach czynności dochodzeniowych policji

10. Stworzenie na podstawie istniejących już polskich a także niemieckich druków wzorów pism do poszczególnych czynności przeprowadzanych w toku postępowania

11. Dostosowanie wzorów pism do specyficznych potrzeb służb dochodzeniowych biorących udział w projekcie

12. Stworzenie schematów działań prowadzonych w ramach postępowań 13. Opracowanie propozycji specjalnych struktur organizacyjnych powoływanych

do życia w związku ze szczególnymi wydarzeniami 14. Implementacja treści podręcznika odzyskiwania mienia autorstwa trzech

członków zespołu projektowego: Dariusza Najmoły, Krzysztofa Wiciaka i Krzysztofa Liszewskiego


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W związku z szerokim spektrum zagadnień (włącznie z pracami programistycznymi), którymi zajmowała się grupa robocza „Taktyka”, konieczny był zwiększony stan osobowy tej grupy. Skład grupy: Funkcjonariusze dochodzeniowi

Komendy Głównej / Centralnego Biura Śledczego o Jacek Sztandar, o Pawel Szyfter, o Maciej Strzelczyk, o Tomasz Safjanski, o Dariusz Najmoła, o Krzysztof Liszewski

Wyższej Szkoły Policji Szczytno o Wojciech Anielski, o Krzysztof Wiciak o Jan Kudrelek

Żandarmerii Wojskowej o Jarosław Pilski

Straży Granicznej o Krzysztof Traczyk,

CBA o Arkadiusz Gorzkiewicz

Tłumacze: Krzysztof Dachterski i Małgorzata Krukowska Zadania grupy „Prawo“ (Dr Johann Podolsky): 3. Stworzenie materiałów szkoleniowych / skryptów odnośnie

przepisów prawa materialnego z zakresu odzyskiwania mienia w oparciu o KK

przepisów prawa formalnego z zakresu odzyskiwania mienia (egzekucja przymusowa według KPK i KPC)

przepisów cywilnoprawnych z zakresu prawa umów, przepisów dotyczących bezpodstawnego wzbogacenia, prawa rzeczowego, rodzinnego, odszkodowawczego, obrotu nieruchomościami, przelewu wierzytelności, czynności pozornych i fiducjarnych, prawa o spółkach handlowych

Zebranie wszystkich istotnych tekstów prawnych 4. Stworzenie wzorów pism na potrzeby tymczasowego zabezpieczenia mienia

(postanowienia o zabezpieczeniu majątkowym w oparciu o różne normy prawne artykułów 291 i nast. KPK)

Skład grupy:

Wymiar Sprawiedliwości / Prokuratura Krajowa o Jolanta Przybyłko, o Piotrek Starzyński o oraz częściowo w zastępstwie pojedynczy prokuratorzy

CBA o Agnieszka Dalecka,


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o Agnieszka Kołakowska

funkcjonariusze z Komendy Głównej Policji / Centralnego Biura Śledczego o Krzysztof Lizewski

Wyższa Szkoła Policji Szczytno o Krzysztof Wiciak, o Jan Kudrelek i o Piotr Kubiński (3 tygodnie trwania projektu)

Tłumacz: Paweł Gugała Prace w ramach projektu przebiegały zgodnie z zaplanowanymi terminami za każdym razem od poniedziałku do piątku w regularnych odstępach czasu, początkowo w siedzibie MSWiA, od grudnia 2007 r. w należącym do MSWiA Hotelu Łazienkowskim. 5. Struktura / Kształt ESOM-u Przedmiotem prac w pierwszym tygodniu trwania projektu była m. in. struktura programu komputerowego ESOM (Elektroniczny System Odzyskiwania Mienia). Do programowania wykorzystano format xml. W oparciu o budowę niemieckiego „Abschöpfer Archiv“ uczestnicy projektu przyjęli następującą strukturę: 11. Start 12. Podstawy 13. Formularze 14. Taktyka 15. Źródła informacji 16. Przepisy 17. Sprawy międzynarodowe 18. Kontakty 19. Teczka 20. Pomoc Część 2: Podstawy: W podstawach znajdują się materiały szkoleniowe / skrypty z zakresu przepisów prawa materialnego, formalnego i cywilnego. Część 3: Formularze: Zawiera wzory pism z zakresu

zapytań o informacje pozyskiwania informacji postanowienia o zabezpieczeniu

Część 4: Taktyka: Znajdują się tu wskazówki taktyczne dotyczące pracy dochodzeniowej policji, np. propozycje dotyczące funkcjonowania specjalnych zespołów tworzonych w związku z powołaniem komisji dochodzeniowo-śledczych, schematy przebiegu postępowań itd.


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Część 5: Źródła informacji: Umieszczono tu linki do katalogów publicznych w Internecie, listy adresów wszelkiego rodzaju źródeł informacji, które umożliwiają dokonywanie ustaleń odnośnie składników majątkowych. Część 6: Przepisy: Ta część zawiera teksty przepisów, do których można sięgać w razie potrzeby w ramach śledztw finansowych. Część 7: Sprawy międzynarodowe: W tym rejestrze zawarto m.in. instytucje zagraniczne, do których można się zwracać z zapytaniami (funkcjonariusze kontaktowi) oraz międzynarodowe umowy i układy. Część 8: Kontakty: Zawarto tu dane kontaktowe wewnątrz struktur policji, wymiaru sprawiedliwości oraz międzynarodowe wzgl. umożliwiono ich zapisywanie. Część 9: Teczka: Znajdują się tu materiały, które nie znalazły miejsca w innych częściach. Również użytkownik może umieszczać tu samodzielnie własne materiały. 6. Zakres prac i ich cele Grupa robocza „Taktyka“ Grupa robocza „Taktyka“ zajęła się treściami mającymi znaleźć miejsce we wszystkich częściach ESOM-u za wyjątkiem części 2 „Podstawy”. O ile treści zawarte w niemieckiej wersji programu „Abschöpfer Archiv“ nadawały się do przejęcia, umieszczano je w polskiej wersji programu. Pozostałe treści zostały opracowane przez uczestników projektu przy uwzględnieniu polskich uwarunkowań / możliwości. Bardzo przydatny okazał się tu w szczególności podręcznik autorstwa kolegów Lizewskiego, Wiciaka i Najmoły. Główną część pracy wykonali koledzy z Komendy Głównej – Centralnego Biura Śledczego i Wyższej Szkoły Policji w Szczytnie. Grupa robocza „Prawo“ W ramach grupy roboczej „Prawo“ opracowano szczegółowo regulacje prawne dotyczące odzyskiwania mienia (formalne i materialne) i nadano im formę skryptów. Jeśli w istnieją orzeczenia sądów wyższych instancji albo postanowienia prokuratur lub sądów w przedmiotowym zakresie, zostały one odszukane przez uczestników i włączone do poszczególnych skryptów. Ponadto korzystano z doświadczeń uczestników. Trudniej przedstawiała się sytuacja ze stworzeniem skryptu do poszczególnych obszarów prawa cywilnego. Uczestnicy nie dysponowali wiedzą o polskich przepisach prawa cywilnego koniecznych do odzyskiwania mienia, która umożliwiałaby zrealizowanie założonego celu. Stąd też eksperci zaproponowali włączenie do prac – jak opisano przy otwarciu projektu – prawnika posiadającego wiedzę z zakresu przepisów prawa cywilnego. Przepisy polskiego prawa cywilnego są w dużej części identyczne z przepisami Federalnego Kodeksu Cywilnego (niem:


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BGB, Bürgeliches Gesetzbuch – przyp. tłum.); jednakże istnieje kilka przypadków szczególnych, jak np. w prawie rodzinnym, które mają wpływ na przyporządkowanie składników majątkowych. Z inicjatywy kolegów Liszewskiego, Najmoły i Wiciaka udało się pozyskać do współpracy pana Piotra Kubińskiego z Wyższej Szkoły Policji w Szczytnie. Jest on autorem obszernego opracowania z zakresu prawa cywilnego, z którego w części można było skorzystać w czasie prac. Pan Kubiński zakończył pracę w projekcie z końcem kwietnia 2008 r. w związku z przejściem na emeryturę. Nie udało się z początku znaleźć zastępstwa, co spowodowało ostatecznie opóźnienie zakończenia prac nad poszczególnymi skryptami z zakresu prawa cywilnego. Dopiero we wrześniu 2008 r. w szkoleniu multiplikatorów wzięła udział pani Wołoszko z Wyższej Szkoły Policji w Szczytnie, prawniczka specjalizująca się w prawie cywilnym. Dzięki jej pomocy i radom udało się w następnych miesiącach zakończyć niezbędne na tym etapie prace redakcyjne skryptów z zakresu prawa cywilnego. Zakres prac w obydwu grupach opisano w Mission Reports do poszczególnych tygodni roboczych. Szkolenie multiplikatorów, szkolenie dla CBA oraz kształcenie i doskonalenie zawodowe w zakresie odzyskiwania mienia Szkolenie multiplikatorów: W tygodniu od 15.-19. września przeprowadzono szkolenie osób reprezentujących w projekcie poszczególne służby / urzędy w zakresie odzyskiwania mienia oraz w wybranych zagadnieniach z zakresu prawa cywilnego. W szczególności omówiono występujące często w praktyce czynności fiducjarne lub też przeniesienie składników majątkowych na osoby trzecie. Na marginesie prowadzonego szkolenia opracowano jeszcze niektóre zagadnienia z zakresu prawa cywilnego i zaimplementowano je do ESOM-u. Szkolenie dla CBA: Z inicjatywy CBA przeprowadzono w tygodniu od 27.-31. października 2008 r. oddzielne szkolenie dla pracowników CBA. Autentyczne kazusy i doświadczenia z zakresu przestępstw korupcyjnych zostały dostosowane do uwarunkowań polskich (okoliczności, możliwości odzyskiwania mienia). Okazało się, że w Polsce występują kazusy i problemy podobnego rodzaju. Uczestnicy seminarium odznaczali się dużym zainteresowaniem i zaangażowaniem. Kształcenie i doskonalenie zawodowe w zakresie odzyskiwania mienia: Szeroko zakrojone szkolenia mające na celu wykształcenie i doskonalenie zawodowe oddelegowanych funkcjonariuszy nie mogły zostać przeprowadzone w ramach niniejszego projektu a także nie były jego przedmiotem. Przeprowadzenie takich szkoleń jest jednak nieodzownie związane z programem wspomagającym ESOM. Zaleca się jednak polskiej policji przeprowadzenie sześciotygodniowych szkoleń dla funkcjonariuszy oddelegowanych specjalnie do pracy w zakresie odzyskiwania mienia.


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7. Podsumowanie Założenia projektu mówiły, że jego uczestnicy pomiędzy tygodniowymi spotkaniami poświęconymi pracy w ramach projektu będą wykonywać do następnego spotkania zadania przydzielone zgodnie z uzgodnionym planem pracy. Nie zawsze udawało się przeprowadzić to zamierzenie w takiej formie, jak zakładano, ponieważ uczestnicy projektu byli zwalniani przez swoje urzędy od innych zadań na okres tygodniowych spotkań w ramach projektu ale już nie na czas potrzebny do zrealizowania przydzielonych zadań pomiędzy spotkaniami. Z tego względu przeprowadzono spotkanie informacyjne dla przełożonych / kierowników jednostek biorących udział w projekcie, aby przedstawić im założenia projektu i jego produkt. Po tym spotkaniu przełożeni zapewnili swoim podwładnym wolne dni na samodzielną pracę nad ESOM-em. W czerwcu 2008 r. projekt został na wniosek przedłużony o jeden tydzień, aby można było sfinalizować prace nad stworzeniem ESOM-u. Zaistniały trudności w opracowaniu podstaw prawnych przez grupę roboczą „Prawo“, co było spowodowane częstymi zmianami członków projektu po stronie wymiaru sprawiedliwości oraz także CBA. Ich przedstawiciele brali udział w pracach jedynie przez kilka dni i byli w niewystarczającym stopniu poinformowani o całości przedsięwzięcia. Jedynie pani Dalecka z CBA Gdańsk oraz pani Przybyłko z Prokuratury Krajowej wzięły udział w większości tygodniowych sesji roboczych. W tygodniu od 14.- 18. czerwca 2008 r. nie było ani jednego przedstawiciela wymiaru sprawiedliwości, podobnie jak podczas szkolenia multiplikatorów od 15. – 19. września 2008 r. Wiedzy i doświadczeniu, motywacji i zaangażowaniu przede wszystkim panów Krzysztofa Wiciaka, Krzysztofa Liżewskiego, Dariusza Najmoły i Wojciecha Anielskiego należy zawdzięczać, że skrypty dotyczące zagadnień prawnych oraz inne teksty na potrzeby ESOM-u zostały przez polską stronę z zachowaniem terminów sporządzone, opracowane, oddane i sprawdzone przez zewnętrznych prawników (np. sędziów). Pan Wojciech Anielski był ponadto nad wyraz kompetentnym specjalistą w zakresie komputerowego przetwarzania danych. Prawdopodobnie największe zapotrzebowanie na korzystanie z ESOM-u będzie po stronie policji; zarówno w praktyce jak też w toku kształcenia i doskonalenia. ESOM należy uważać jedynie za instrument pomocniczy przy odzyskiwaniu mienia. Nie zastępuje opierającej się o podstawy prawne analizy i oceny stanu faktycznego. Z tego powodu opracowano skrypty z zakresu prawa, które znajdują się w ESOM-ie w części „Podstawy”. Powinny służyć intensywnemu szkoleniu specjalistów w przedmiotowym zakresie. Odnośnie tego punktu patrz załącznik „Koncepcja”, którą zalecają eksperci. Dr Johann Podolsky Roland Baier Inspektor Policji Kryminalnej Podinspektor Policji Kryminalnej3

3 Właściwie: Erster Kriminalhauptkommissar – stopień pomiędzy nadkomisarzem a podinspektorem (przyp. tłum.)


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Intensyfikacja odzyskiwania mienia przez policję i wymiar sprawiedliwości w Polsce I. Koncepcja odzyskiwania mienia Przyjmując za punkt wyjścia doświadczenia poczynione na terenie Niemiec a w szczególności w Badenii-Wirtembergii sugerujemy naszym partnerom sporządzenie koncepcji odzyskiwania mienia. Taka koncepcja powinna obejmować następujące punkty: 1. Stworzenie jednostki centralnej w strukturach policji oraz ewentualnie także w strukturach prokuratury / wymiaru sprawiedliwości (patrz zał.: Model trzech filarów w Badenii-Wirtembergii) 2. Specjalistyczne szkolenia funkcjonariuszy w ramach kilkutygodniowych seminariów poświęconym przede wszystkim zagadnieniom: prawo cywilne, prawo materialne i formalne, taktyka działania przy zastosowaniu ESOM-u 3. Całkowite uwolnienie przeszkolonych funkcjonariuszy od innych obowiązków 4. Wyznaczenie osób kontaktowych w strukturach wymiaru sprawiedliwości (w prokuraturach) 5. Coroczne spotkania przedstawicieli policji i wymiaru sprawiedliwości w celu wymiany doświadczeń 6. Rozwijanie / aktualizacja ESOM. Kierownictwo prac powinno objąć Ministerstwo Spraw Wewnętrznych / policja. ad 1.) Stworzenie jednostki centralnej Jednostka centralna powinna zostać obsadzona funkcjonariuszami doświadczonymi w zwalczaniu przestępczości gospodarczej oraz przestępczości zorganizowanej a także prawnikami, aby mogli oni służyć pomocą funkcjonariuszom pełniącym służbę w jednostkach policji na terenie kraju. Do zakresu zadań jednostki centralnej należy również piecza nad przeprowadzaniem szkoleń doskonalących (we współpracy z Wyższą Szkołą Policji) uwzględniających autentyczne kazusy i doświadczenia z praktyki prokuratorskiej i sądowej. ad 2.) Szkolenia specjalistyczne Funkcjonariusze policji (także prokuratorzy, sędziowie) muszą przejść specjalistyczne szkolenia z przepisów prawa cywilnego, materialnego i formalnego w zakresie odzyskiwania mienia oraz z taktyki prowadzenia działań. Do istotnych punktów należy zrozumienie i znajomość przepisów prawa w przedmiotowym zakresie oraz związków między wymienionymi dziedzinami prawa. Szkolenia w zakresie prawa powinny odbywać się na podstawie praktycznych oraz autentycznych kazusów. Rozwiązywanie kazusów powinno odbywać się także przy wykorzystaniu ESOM-u. Cykl szkolenia powinien obejmować następujące podstawowe zakresy: 1. Prawo cywilne wraz z prawem o umowach, czynnościami pozornymi i fiducjarnymi, prawem rzeczowym, prawem odszkodowawczym, prawem o spółkach handlowych 2. Prawo materialne z przepisami Kodeksu Karnego dotyczącymi przepadku (art. 44, 45, 52 KK i inne) 3. Prawo formalne z przepisami art. 292, 217 i nast. KPK oraz przepisami KPC dotyczącymi zajęcia 4. Prowadzenie przygotowanych pod względem taktycznym dochodzeń w celu ustalenia wartości majątkowych i przygotowania zajęcia w oparciu o przepisy KPK / KPC 5. Praca z ESOM / obsługa ESOM. Podział zadań w ramach prowadzenia szkoleń doskonalących powinien zostać uzgodniony między ośrodkami kształcenia i doskonalenia oraz policją. Przy tym powinny zostać uwzględnione w należyty sposób praktyczne doświadczenia komórek prowadzących dochodzenia. Zaleca się przeprowadzenie trwającego przynajmniej 4-6


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tygodni seminarium „Odzyskiwanie mienia”. Specjalistyczne szkolenie w przedmiotowym zakresie w Badenii-Wirtembergii odbywa się przykładowo w ramach ośmiotygodniowego seminarium „Odzyskiwanie mienia w ramach prowadzonych postępowań – moduł A”. Dalszy tok kształcenia ma formę modułową. W ramach projektu ESOM zostały sformułowane treści sześciotygodniowego szkolenia dla polskich kolegów. Na początku należałoby pomyśleć – zaczynając od jednostki centralnej – o zaspokojeniu podstawowego zapotrzebowania. Sukcesywnie można potem liczbę „odzyskiwaczy mienia” zwiększać. Ad 3.) Całkowite uwolnienie od innych obowiązków Przeszkoleni funkcjonariusze powinni zostać oddelegowani tylko i wyłącznie do wykonywania działań w przedmiotowym zakresie i działać na zasadzie komórki usługodawczej; zarówno na szczeblu jednostki centralnej, która powinna powstać, jak też na szczeblu regionalnym Liczebność: W Badenii-Wirtembergii zakładano w pewnym okresie proporcje: jeden funkcjonariusz ds. odzyskiwania mienia na 350 etatów funkcjonariuszy (1:350). ad 4.) Wyznaczenie osób kontaktowych w strukturach wymiaru sprawiedliwości Kompetentny do określenia, jak można zorganizować i zintensyfikować odzyskiwanie mienia, jest wymiar sprawiedliwości (prokuratury / sądy). Pojedynczy prokuratorzy oddelegowani są do zadań związanych z odzyskiwaniem mienia lub pełnią funkcję osób kontaktowych dla innych prokuratorów / sędziów. ad 5.) Coroczne spotkania przedstawicieli policji i wymiaru sprawiedliwości Raz do roku powinny być organizowane jedno- lub dwudniowe spotkania służbowe funkcjonariuszy policji zajmujących się odzyskiwaniem mienia z osobami kontaktowymi w strukturach wymiaru sprawiedliwości w celu wymiany doświadczeń z prowadzonych postępowań, doświadczeń ze stosowaniem przepisów prawa oraz zapoznania się z praktyką orzecznictwa sądów. ad 6) Powołanie zespołu ds. rozwoju / aktualizacji ESOM-u Dbałość o zasoby danych oraz rozwój systemu powinny zostać zapewnione przez stałe gremium. Pracom powinno przewodniczyć MSWiA / policja, ponieważ

policja w związku ze spektrum swoich zadań ma największe zapotrzebowanie, pozostałe organy ścigania mają ściśle określony wąski zakres działań, w Wyższej Szkole Policji w Szczytnie oraz w czynnej służbie policyjnej istnieje już

odpowiednia kadra nauczycielska (autorzy ESOM-u) czynności programistyczne zostały wykonane w Wyższej Szkole Policji w

Szczytnie powinny zostać uwzględnione doświadczenia praktyczne komórek prowadzących

postępowania


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Section 3: Expenditure


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totaloriginal planned

totalactual planned

I. Quarter II. Quarter III. Quarter IV. Quarter V. Quarter VI. Quarter Final Report total actual

Budget 01. RTA Remuneration 85.987,20 EUR 105.833,16 EUR -5.088,71 EUR -36.254,05 EUR -21.496,80 EUR -21.496,80 EUR -21.496,80 EUR 0,00 EUR 0,00 EUR -105.833,16 EUR

Budget 02. RTA Allowances 81.721,00 EUR 98.042,34 EUR -16.484,34 EUR -17.133,50 EUR -17.062,00 EUR -17.062,00 EUR -16.256,50 EUR -606,75 EUR 0,00 EUR -84.605,09 EUR

Budget 03. RTA Training in Brussels 0,00 EUR 797,00 EUR 0,00 EUR -797,00 EUR 0,00 EUR 0,00 EUR 0,00 EUR 0,00 EUR 0,00 EUR -797,00 EUR

Budget 04. RTA Assistant 36.000,00 EUR 40.500,00 EUR -3.000,00 EUR -50,01 EUR 0,00 EUR -3.000,00 EUR -1.850,00 EUR 0,00 EUR 0,00 EUR -7.900,01 EUR

Budget 05. Project Preparation 17.915,00 EUR 7.682,82 EUR -388,82 EUR -1.684,00 EUR -3.737,96 EUR 0,00 EUR 0,00 EUR 0,00 EUR 0,00 EUR -5.810,78 EUR

Budget 06. Project Co-ordination Costs 37.107,00 EUR 43.623,94 EUR -3.627,38 EUR -3.154,12 EUR -12.275,88 EUR -6.839,88 EUR -4.112,29 EUR -2.314,55 EUR -3.006,98 EUR -35.331,08 EUR

Budget 07. PROJECT ACTIVITIES 576.253,50 EUR 545.124,98 EUR -59.914,02 EUR -68.514,45 EUR -113.481,55 EUR -123.506,61 EUR -27.778,96 EUR -58.172,78 EUR -3.033,87 EUR -454.402,24 EUR

Budget 07.0 PROJECT ACTIVITIES - Component PF 33.517,50 EUR 32.874,21 EUR -7.909,21 EUR -1.261,00 EUR -324,00 EUR 0,00 EUR 0,00 EUR -19.625,19 EUR 0,00 EUR -29.119,40 EUR

Budget 07.1 PROJECT ACTIVITIES - Component 1 332.877,00 EUR 323.653,73 EUR -43.057,44 EUR -46.857,77 EUR -78.174,97 EUR -87.224,57 EUR -23.548,96 EUR -10.154,79 EUR -283,11 EUR -289.301,61 EUR

Budget 07.2 PROJECT ACTIVITIES - Component 2 209.859,00 EUR 188.597,04 EUR -8.947,37 EUR -20.395,68 EUR -34.982,58 EUR -36.282,04 EUR -4.230,00 EUR -28.392,80 EUR -2.750,76 EUR -135.981,23 EUR

Sum budget sections 834.983,70 EUR 841.604,24 EUR -88.503,28 EUR -127.587,13 EUR -168.054,19 EUR -171.905,29 EUR -71.494,55 EUR -61.094,08 EUR -6.040,85 EUR -694.679,37 EUR

Contingency 15.016,30 EUR 8.201,30 EUR 0,00 EUR -412,00 EUR -1.032,00 EUR -820,10 EUR -4,28 EUR 0,00 EUR -325,92 EUR -2.594,30 EURSurplus 0,00 EUR 194,46 EUR

Sum total budget

850.000,00 EUR 850.000,00 EUR -88.503,28 EUR -127.999,13 EUR -169.086,19 EUR -172.725,39 EUR -71.498,83 EUR -61.094,08 EUR -6.366,77 EUR -697.273,67 EUR


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For the administration of the Member State Ms Roswitha Engels, Federal Office of Administration MS project leader

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For the administration of the BC Andrzej Trzesiara, Ministry of the Interior and Administration BC project leader

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