Tom Tvedt

En ny regjeringen bør legge arbeidet med tvangslovgivningen på is

Den kommende regjeringen bør legge arbeidet med en ny tvangslovgivningen på is og ta arbeidet i tur og orden. Først av alt bør CRPD inkorporeres i menneskerettighetsloven.

Helse- og omsorgsminister Bent Høie skal ha ros for å ta utfordringene med tvangslovgivningen i helse- og omsorgslovgivningen på alvor da han nedsatte Tvangslovutvalget. Dessverre var Tvangslovutvalgets forslag av en slik karakter at svært mange av organisasjonene på feltet tok avstand fra innstillingen. Foruten NFU gjaldt dette blant annet Autismeforeningen (AiN), Fellesorganisasjonen (FO), Foreningen Spekteret, Foreningen JAG, Funksjonshemmedes fellesorganisasjon (FFO), Hvite Ørn, Landsforbundet for utviklingshemmede og pårørende (LUPE), Mental Helse Ungdom, Samarbeidsforumet av funksjonshemmedes organisasjoner (SAFO), Stopp Diskrimineringen, Uloba, Vernepleierforbundet i Delta og We Shall Overcome (WSO).

En vesentlig del av kritikken, var at utvalgets forslag i liten grad bygde på FN-konvensjonen om rettighetene til mennesker med nedsatt funksjonsevne (CRPD).

Helse- og omsorgsdepartementet har utarbeidet et nytt høringsutkast som bygger på Tvangslovutvalgets forslag med høringsfrist den 8. november. En ny regjering bør trekke høringsutkastet og utsette utarbeidelsen av nye tvangslovverk til sentrale premisser er på plass.

 

FN-konvensjonen om rettighetene til mennesker med nedsatt funksjonsevne (CRPD)

Ut i fra partiprogrammene, er det flertall i Stortinget for å inkorporere CRPD i menneskerettighetsloven. Tvangslovutvalget gikk i svært liten grad gjennom forholdet til CRPD. Arbeidet med ny tvangslovgivning bør utsettes til det nye Stortinget har vedtatt inkorporering av CRPD. I forhold til tvangslovgivningen er følgende artikler i CRPD av spesiell interesse:

  • Artikkel 1: Formål

  • Artikkel 3: Generelle prinsipper

  • Artikkel 5: Likhet og ikke-diskriminering

  • Artikkel 12: Likhet for loven

  • Artikkel 13: Tilgang til rettsystemet

  • Artikkel 14: Frihet og personlig sikkerhet

  • Artikkel 15: Frihet fra tortur eller grusom, umenneskelig eller nedverdigende behandling eller straff

  • Artikkel 17: Vern om personlig integritet

  • Artikkel 19: Retten til et selvstendig liv og til å være en del av samfunnet

  • Artikkel 22: Respekt for privatlivet

  • Artikkel 23: Respekt for hjemmet og familien

Et lovforslag om inkorporering av CRPD vil legge føringer for tvangslovgivningen. Lovarbeidet må tas i riktig rekkefølge.

Fra vergemål til beslutningsstøtte

Vergerollen er sentral i dagens tvangslovgivning. Vergemålsordningen er i endring og en kan forvente endringer i vergemålsordningen mot en beslutningsstøtteordning. Endringsforslag har allerde vært på høring. Endringene i vergemålsordningen bør gjennomføres før en etablerer et nytt tvangslovverk.

Når lovbestemmelsene ikke etterleves

Det er veldokumentert og velkjent at lovverket i stor grad brytes overfor mennesker med utviklingshemning.

Nasjonalt tilsyn med bruken av tvang og makt overfor mennesker med utviklingshemning avdekket i 2005 ulovlig bruk av tvang og makt i 77 prosent av tilfellene. Rapporten fra tilsynet i 2006 avdekket ulovlig bruk av tvang og makt i 74 prosent av tilfellene. Etter 2006 har det ikke vært nasjonale tilsyn med bruken av tvang og makt overfor mennesker med utviklingshemning. Men det nasjonale tilsynet med tjenestene til mennesker med utviklingshemning i 2016 avdekte lovbrudd i 79 prosent av tilsynene. Brudd på tvangslovgivningen var en gjenganger.

Likestillings- og diskrimineringsombudet har foretatt tilsyn med tvangsvedtak. Sivilombudets forebyggingsenhet har foretatt tilsyn med personer med utviklingshemning som bor i bofellesskap. Begge tilsynene avdekker at dagens lovverk ikke blir fulgt. Dagens situasjon er for mange i strid med norsk lovverk, CRPD og torturkonvensjonen.

Statens Helsetilsyn skriver i sin oppsummeringsrapport fra 2017, side 27:

«De alvorlige forholdene som dette tilsynet har avdekket gir grunn til å stille spørsmål om dagens rammer og ressurser for kommunenes tjenestetilbud er tilstrekkelige til å sikre gode og trygge tjenester til alle brukerne. Har kommunene nødvendige forutsetninger for å etablere og drifte forsvarlige tilbud – også til brukere med store og komplekse tjenestebehov? Gir staten tydelige nok krav, føringer og faglig støtte til kommunenes oppgaveløsning? Prioriterer spesialisthelsetjenesten bistanden til kommunene høyt nok?»

Regjeringen Solberg besvarte aldri spørsmålene.

Før en får styringssystemer som bidrar til at lovverket følges, så er det ikke ordlyden i enkeltparagrafer som er flaskehalsen i systemet.

Den kommende regjeringen bør legge arbeidet med en ny tvangslovgivningen på is og ta arbeidet i tur og orden. Først bør regjeringen utarbeide lovforslag om inkorporering av CRPD i menneskerettighetsloven. Deretter bør vergemålsloven endres til en lov om beslutningsstøtte. Regjeringen må også sikre tilstrekkelig med ressurser, kompetanse og kontroll med utøvelsen av tvangstiltak i kommunene. Når disse forholdene er på plass, så har en et godt rammeverk for å starte prosessene med større revisjoner av tvangslovgivningen.

Tom Tvedt

26 september 2021

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