Основна проблема застосування КПК— відкритий саботаж з боку органів досудового розслідування

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Із виступу на зустрічі з експертами Ради Європи 19 лютого 2013 року в рамках проекту «Підтримка реформи кримінальної юстиції в Україні» голови парламентського Комітету з питань законодавчого забезпечення правоохоронної діяльності Андрія Кожем’якіна.

Позитивно сприймаючи сам факт прийняття нового Кримінального процесуального кодексу, не можна не звернути уваги на суттєві викривлення у його застосуванні. Ми прогнозували їх ще на стадії обговорення проекту нового КПК. Було внесено майже 4 тис. поправок з метою запобігти в майбутньому використанню цього КПК в політичних або особистих цілях.

Одним із основних наших зауважень до КПК був порядок «автоматичного» початку кримінального провадження за будь-якою інформацією про кримінальне правопорушення. Тобто інформація про таке правопорушення без будь-яких застережень вноситься до Єдиного реєстру досудових розслідувань (ст. 214 КПК).

Експертами було висловлено думку, що стадія порушення кримінальної справи та будь-яка перевірка перед внесенням заяви до Єдиного реєстру досудових розслідувань (ЄРДР) — це «сіра сфера», непідконтрольна закону, в якій відбуваються основні фальсифікації. Тобто міжнародні експерти підтримали такий порядок реєстрації заяв (без попередньої перевірки) як запобіжник катувань і масових фальсифікацій, що раніше відбувалися на етапі порушення кримінальної справи.

Ми пропонували детально виписати порядок прийняття заяви, її попередньої перевірки та внесення до Реєстру в самому кодексі. Академік Володимир Зеленецький, який брав участь у роботі над проектом КПК, розробив детальний порядок таких дій. Усе це було відхилено як таке, що може призвести до зволікань при внесенні повідомлень до реєстру, повернення до насильства, катувань і фальсифікацій у правоохоронних органах.

У результаті частина перша статті 214 КПК зобов’язує вносити заяву до реєстру невідкладно, але не пізніше 24 годин після її подання. Частина четверта чітко забороняє відмову у прийнятті та реєстрації заяви. Але за дев’ять днів до початку дії нового КПК генеральний прокурор своїм наказом вніс зміни до інструкції про порядок ведення цього реєстру. Фактично ці зміни дають право правоохоронним органам протягом семи днів проводити не передбачену законом і не прописану в законі перевірку заяви до внесення її до Реєстру. Тобто інструкцією спотворено одну з головних ідей кодексу — усунення людського чинника від прийняття рішення про початок розслідування.

Тепер ця інструкція, по суті, підміняє закон, стоїть над нормами КПК. Тобто інструкцією повернуто старий порядок прийому заяв про злочини, але ще більш спотворений. Можу довести це на прикладі щоденної практики правоохоронних органів.

Кожну добу ми отримуємо оперативну інформацію з МВС України. З неї добре видно, що правоохоронці на свій розсуд визначають, реєструвати заяву про кримінальне правопорушення чи ні. В результаті невідомо де ховається половина із заяв громадян.

Хто нам може сказати, де вони? Коли ми ставимо ці запитання керівникам прокуратури, міліції та й керівництву держави, відповідь така: новий КПК підтриманий Радою Європи, міжнародною спільнотою. А більш обізнані чиновники прямо посилаються на експертів, зокрема й на Лорену Бахмаєр Вінтер, Еріка Сванідзе та Джеремі МакБрайда. Нібито ці поважні експерти санкціонували такий порядок, який сьогодні вилився у відверте беззаконня.

За 9 лютого 2013 року відмовлено у реєстрації 2615 заяв і повідомлень. За 15 лютого —в порушення статті 214 КПК відмовлено у реєстрації 2550 заяв і повідомлень.

Тут нюанс полягає в тому, хто визначає, має це повідомлення ознаки кримінального правопорушення чи ні. Ми пропонували виписати критерії в кодексі, ви не погодилися. Тепер кожен міліціонер сам собі критерій у цій справі.

Юридична спільнота сьогодні одностайна: КПК є кроком уперед, але основна проблема його застосування — відкритий саботаж з боку органів досудового розслідування. І в основі такого стану справ лежать наші невраховані пропозиції, які були спрямовані саме на запобігання цьому.

По кожній статті КПК можна навести приклади «вдосконалення» їх наказами, інструкціями або традиціями діяльності правоохоронців.

Наприклад, рівність сторін. Понад 300 поправок, які ми пропонували, аби зробити цю рівність реальною, а не декларативною, не враховані. І це мотивується посиланнями на шановних експертів, які нібито погодили ту редакцію, яка надійшла від президента, і тому жодні зміни були неприпустимі.

Що відбувається внаслідок цього?

Стаття 221 КПК регламентує ознайомлення сторони захисту з матеріалами досудового розслідування. На практиці цього не відбувається, оскільки КПК передбачає можливість не надавати матеріали, ознайомлення з якими, на думку сторони обвинувачення, може зашкодити провадженню. Десь в Європі, можливо, прокурори сумлінно підходять до цього питання, але у нас прокурори вважають, що всі матеріали можуть зашкодити провадженню, тому отримати до них доступ нереально.

Крім того, сторона обвинувачення посилається на те, що зазначена стаття КПК не містить конкретного переліку того, що саме має бути надано.

З цим я безпосередньо стикнувся на практиці як захисник Юлії Тимошенко, коли їй та її адвокатам у так званій справі про вбивство Євгена Щербаня з багатьох десятків томів кримінальної справи для ознайомлення було надано лише декілька. Про яку реальну змагальність сторін обвинувачення та захисту можна говорити?

Існує низка чинників, які істотно впливатимуть на застосування нового КПК. Це не лише заблокує прогресивні новели у сфері кримінального процесу, а й поглибить наявні у ньому проблеми.

Перший і головний — відсутність в Україні незалежної судової влади. Нинішній стан української судової влади — по суті, загальновизнаний факт, констатований експертами, політиками (в тому числі навіть самими авторами судової реформи), підтверджений судовою практикою, констатований міжнародною спільнотою.

Так, Парламентська асамблея Ради Європи чітко висловила «своє глибоке занепокоєння через відсутність незалежної судової системи» та зауважила, «що це є основним викликом для системи правосуддя в Україні».

Внаслідок «судової реформи» встановлено контроль президента над судами і посилено політичний та інший вплив на них. Правосуддя в Україні значно погіршено навіть порівняно з комуністичними часами. Вищі суди в Україні керуються не законом, а політичною ситуацією в державі.

В Україні відсутня політична воля керівництва держави забезпечити справжню незалежність суду. Є спроби закріпити нинішню ситуацію в судах на конституційному рівні. Велика проблема полягає у паралельному застосуванні нових процесуальних норм разом з нормами старого КПК, які певний час також будуть чинними. Фактично у нас зараз є два кримінальні процеси. Більш того, у справі, яка загалом розглядається за новим КПК, докази можуть оцінюватися згідно з нормами старого кодексу!

Найбільшим розчаруванням стало давно обіцяне започаткування в Україні суду присяжних, яке фактично так і не відбулось. Із статей 31, 242, 383—391 можна дійти висновку, що йдеться не про присяжних у класичному розумінні цього поняття, а про народних засідателів ще радянського штибу. Завдяки такому суду присяжних будуть «легалізувати» політично вмотивовані вироки та ухвали, засуджуватимуть до довічного ув’язнення політичних опонентів.

До речі, двоє суддів Конституційного суду України зверталися з відповідними листами до парламенту та президента на стадії підготовки КПК. Але їхніх голосів, як і голосів десятків народних депутатів від опозиції не почули.

Подальше реформування системи кримінальної юстиції (нові закони про прокуратуру та Національне бюро розслідувань) не може успішно здійснюватися без належного аналізу практики застосування нового КПК, «вдосконалення» цього прогресивного кодексу так званими інструкціями, положеннями та неписаними правилами. Якщо при підготовці цих законів ми не врахуємо реалій нинішньої влади, якщо й надалі будуть ігноруватися застереження опозиції, ми під виглядом прокуратури європейського зразка отримаємо прокуратуру Вишинського, озброєну такими новелами КПК, як покази з чужих слів (осіб, що, як правило, давно померли, були вбиті або пропали без вісті). При цьому влада, генеральний прокурор і керівники правоохоронних органів посилатимуться на міжнародних експертів, нібито це саме вони «схвалили» ці норми.

Конституція України 1996 року містить чітку норму про те, що прокуратура продовжує здійснювати попереднє слідство та загальний нагляд лише протягом нетривалого перехідного періоду. Венеціанська комісія цілком розумно бачить таким строком п’ять років. Але перехідний період триває й досі, вже 17 років замість п’яти. Більш того, Конституція дає право прокуратурі на проведення попереднього слідства, а сьогодні у нас є досудове розслідування, тобто абсолютно інша діяльність. На мій погляд, відповідні поправки опозиції були відхилені якраз із метою збереження цього неконституційного статусу прокуратури.

Реформування системи кримінальної юстиції України зумовлене зобов’язаннями нашої держави виконати рекомендації Парламентської асамблеї Ради Європи та Венеціанської комісії щодо створення прокуратури європейського зразка, зокрема, у частині загального нагляду, посилення незалежності прокурорів і переміщення акцентів у її статусі, функціях та повноваженнях від виконавчої до судової гілки влади. Генеральна прокуратура потребує комплексного і глибокого реформування, що пов’язано з тими зобов’язаннями, які Україна взяла на себе, вступаючи у 1995 році до РЄ: перегляд ролі та функцій прокуратури.

Закон України «Про прокуратуру» набув чинності з 1 грудня 1991 року. Починаючи з 1993-го до цього закону неодноразово вносилися зміни та доповнення. Проте до цього часу більшість норм Закону України «Про прокуратуру» так і не приведено у відповідність із Конституцією України. Прокуратура України є не реформованою відповідно до її конституційних функцій та рекомендацій Ради Європи.

Прокуратура сьогодні є абсолютно неконтрольованою організацією, яка повністю домінує над системою правосуддя. Єдина особа, що має на неї реальний вплив, — це президент, але навіть у демократичних державах проконтролювати всю діяльність прокуратури ні президент, ні його адміністрація не здатні.

Тому прокуратура має бути в системі судової влади або в системі Міністерства юстиції. В цій ситуації ухвалення нового Закону України «Про прокуратуру України» є одним із найважливіших завдань законодавчої гілки влади.

Однією із суттєвих перешкод є питання загального нагляду, який не входить до конституційних функцій прокуратури. У висновку, затвердженому 12—13 червня 2009 року (CDL-AD(2009)024), Венеціанська комісія, зокрема, зазначила (в п. 95): «Особливо позитивною є пропозиція скасувати повноваження прокурора, яке завжди суворо критикувалося Венеціанською комісією, — повноваження здійснювати «нагляд за додержанням прав і свобод людини і громадянина, додержанням законів з цих питань органами виконавчої влади, органами місцевого самоврядування, їх посадовими і службовими особами». Це положення є типовим прикладом, який нагадує стару систему радянської прокуратури».

Разом з тим загальний нагляд прокуратури фактично збережений на рівні положень Закону України «Про прокуратуру» (розділ ІІ), а низкою інших законів (25 законів України, більшість з яких не мають жодного стосунку до правоохоронної діяльності, — це закони про металобрухт, відпустки і таке інше) передбачається таке повноваження прокуратури, яке не відповідає Конституції України. Ситуація ускладнюється тим, що законодавчі пропозиції, спрямовані на виключення із цих численних законів положень про вищий нагляд прокуратури за додержанням законів (законопроект реєстр. № 8208 від 9 березня 2011 року), не були підтримані у Верховній Раді України.

Аналогічний проект № 1168 від 28 грудня 2012 року блокується провладною більшістю, яка не бажає навіть включати його до порядку денного сесії.

До речі, наша прокуратура воліє не вважати себе правоохоронним органом. Вона відстоює позицію про те, що система гілок влади застаріла, і прокуратура сьогодні є новою гілкою влади, яка не входить ні до судової, ні до виконавчої гілок.

Роботу над подальшим реформуванням кримінальної юстиції слід активізувати. І наріжними каменями цього процесу мають бути два аспекти. Перший — виважене вдосконалення КПК як базового нормативно-правового акта в цій сфері. Другий аспект — термінове приведення функцій і повноважень прокуратури як центрального елемента кримінальної юстиції до моделі, закладеної в КПК, — органу, що здійснює державне обвинувачення. Все інше, чим вони сьогодні займаються, відволікає ресурси та шкодить виконанню основної функції прокуратури. І саме це має бути основою при підготовці нового закону.

Проект закону про прокуратуру № 0886 прийнято за основу в першому читанні. Для підготовки і прийняття нового законопроекту потрібно багато часу. На базі вже прийнятого за основу проекту можна створити абсолютно новий закон про прокуратуру європейського зразка, віднести її до судової влади чи системи Міністерства юстиції.

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94 Responses to Основна проблема застосування КПК— відкритий саботаж з боку органів досудового розслідування

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