3. Strategic programs against organized crime in Denmark and Sweden

This Chapter compiles information about the Danish gang packages and Sweden’s two key strategic programs against organized crime and gang crime.

This information is summarized from a script on the content of the key strategic programs in Denmark and Sweden (Muttilainen et al., 2024). Of original sources, see e.g. 2008/1 SF.L L 211; Justitsministeriet, 2009; 2013/1 SF.L L 112; Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

Of these, focus areas and measures are described in particular. Many of these measures are subjected to evaluation in Chapters 4–7. The information is based on documents compiled from open sources.

Measures against organized crime and gang crime feature prominently in many other recent policy programs as well. In Sweden, for example, the topic is included in the national security strategy (Regeringens skrivelse 2023/24:163) and the national crime prevention program (Regeringens skrivelse 2020/21:63). Measures against organized crime are also examined in Chapters 4–7.

3.1 Priorities in strategic programs

Denmark’s first gang package from 2009 focused on harsher penalties for gang and weapon cases, development of investigative tools and increasing safety, particularly in socially vulnerable areas. The second gang package, published in 2014, focused on harsher penalties, improving the efficiency of supervision and enforcement, the tools of the authorities, crime prevention and gang exit. The third gang package from 2017 aimed to improve citizens’ safety, imposing stricter sanctions for gang crimes and increasing pressure on gangs. The fourth gang package, presented in 2023, focused on criminal careers, tighter control and better justice, illegal weapons, criminal business activities, the tools of the authorities and cross-border crime.

The 34-point anti-gang crime strategic program, presented in Sweden in 2019, provided a broad range of tools for crime prevention, stricter criminal sanctions, means for breaking the culture of silence and a broader societal perspective on crime prevention. The latest strategic program against organized crime from 2024 focuses on stopping criminal careers, reducing the availability of illegal weapons and explosives, suppressing the criminal economy, preventing inappropriate influence and information management issues. Of course, work against organized crime had been performed in Sweden even before. For example, the model for cooperation between the authorities, published in 2009, and updated after the mid-2010s, refers to intelligence and operational means targeted at organized crime phenomena, networks and individuals.

Ds 2008:38. The model for cooperation between the authorities is examined separately in Chapter 6.

Figure 2 summarizes focus areas of the above-mentioned most recent strategic programs against organized crime in Denmark and Sweden from 2017–2024.

Figure 2. Focus areas of the strategic programs against organized crime in Denmark and Sweden in 2017–2024.

Sources: Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

The strategic programs against organized crime in Denmark and Sweden have developed into broad-based entities in terms of their content. On the one hand, they make criminal activities more difficult and impose stricter sanctions for crimes, and on the other hand, they develop the activities of the authorities and protect vulnerable persons in various ways. Harsher penalties and other repressive measures in their various forms have been at the heart of the Danish model, but they are increasingly visible in Sweden as well. Of the themes of Sweden’s latest strategic program, the prevention of inappropriate influence and issues related to identity and information management, include new points of emphasis.

3.2 Measures in strategic programs

The strategic programs against organized crime in Denmark and Sweden include a remarkably wide range of individual measures. The four gang packages of Denmark and the two latest strategic programs of Sweden contain a total of approximately 170 measures as described in the sources used in this report. However, some of the measures are of the same type in these countries or in the same country at different times.

The measures in the strategic programs are related, for example, to the imposition of various prohibitions and restrictions, risk management and the enhancement of supervision by the authorities, stricter criminal sanctions, and the development of cooperation and the exchange of information between the authorities. In addition, the range of methods includes various services that prevent recruitment for crime and support gang exit.

Next, we take a more detailed look at the measures proposed in the strategic programs presented above. However, they are not described in their original form, but more concisely. Table 2 describes the imposition of harsher penalties, Table 3 the prohibitions, restrictions and control measures, Table 4 the enhancement of the authorities' activities and crime prevention and Table 5 the various forms of social support and protection. The range of measures in Denmark is slightly broader in this review, but there are also more programs under review than in Sweden.

Denmark

Sweden

gang rule on doubling penalties and extending the scope of the provision
crimes related to gang confrontations
possession, use and storage of illegal weapons
possession of knives and stabbings
economic crime
recruiting children and juveniles for crime
humiliating violence, illegal coercion, systematic extortion
violence and threats against witnesses
preventing certain authorities from performing their tasks
violation of the residence ban and violation of the prohibition on using an assembly room

crimes related to confrontation of criminals
crimes involving weapons and explosives
recruiting juveniles for crime
abolition of mitigation of the penalty scale for young adults
drug trafficking
complicating legal proceedings
false statement and protection of the perpetrator

Table 2. Proposals for harsher penalties in the strategic programs against organized crime in Denmark and Sweden

Sources: 2008/1 SF. L L 211; 2013/1 SF.L L 112; Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

In the debate on the Danish model, there have been constant references to hard repressive measures in combating organized crime. This refers, in particular, to the so-called “gang provision”, which means double penalties for crimes related to gang activities under certain preconditions.

The frequency of regulation in the area of imposing harsher penalties has increased significantly. The scope of the gang provision has been extended, and other sanctions, prohibitions, restrictions and stricter controls have been introduced in new target areas. In addition, certain measures have been made stricter or their scope extended at a later date. Today, the strategic programs against organized crime in both Denmark and Sweden contain many examples of various repressive measures.

Denmark

Sweden

criminal register entry for an infringement of the weapons act
more extensive use of remand imprisonment in cases involving weapons
residence ban for individuals convicted for gang crime and gang guards, extension of the residence ban area
prohibition on contacting other gang members
prohibition or closure of gang assembly rooms
nightlife bans to prevent drug trafficking
prohibition on travel for serious cross-border crimes, broader possibilities to deport gang members
enhanced supervision with shooting associations
closer police supervision in the approval of security stewards
refusal of child and youth allowances and reduction of victim compensation for convicted gang members
stricter conditional prison sentences, terms and conditions of parole and release of gang criminals
linking parole with the exit process and electronic surveillance
prohibition to leave prison during gang conflicts for gang members and those more loosely associated with gangs
isolation of gang leaders in prisons and stricter discipline
more stringent supervision of letters and visitors for gang criminals in prisons

increasing the risk of detecting and prosecuting crimes related to illegal weapons and explosives
control of the handling and trade of weapons and explosives
preventing the import and smuggling of weapons and explosives
restricting gang members' residence and meetings in certain areas
camera surveillance at borders and in cities
accelerating and increasing criminal prosecution of serious crimes in criminal environments
youth supervision sanction
compulsory imprisonment for more types of crime
linking parole with the exit process and prevention of recidivism

Table 3. Proposals for prohibitions, restrictions and control measures in the strategic programs against organized crime in Denmark and Sweden

Sources: 2008/1 SF.L L 211; 2013/1 SF.L L 112; Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

The strategic programs under review include numerous means for developing crime prevention and investigation. They concern many basic aspects of the activities of the authorities, such as resources, operational authorizations, tools, situational picture, cooperation and exchange of information. Some of the measures are well targeted, such as the measures focused on different crime types, target groups and investigation methods. The strategic programs also highlight numerous matters requiring further research.

Denmark

Sweden

visibility of the police in general and in gang gatherings
expansion of investigative methods: phone tapping, secret searches, decryption, cryptocurrency investigation, asset confiscation, camera surveillance, rewards for tip-offs
enhancing the exchange of information between the authorities and providing instructions, passing on confidential information of persons under the age of 18 to related parties
forwarding of register identification data to other authorities
resources: strengthening operational investigation, forensic investigation capacity in shooting cases, use of civilian actors
targets of crime prevention: cross-border crime, vulnerable areas, gang status symbols, exploitation of the leasing industry, gas and signaling weapons
Al Capone cooperation to prevent misuse of benefits
matters requiring further research: gang members’ profile and costs of crimes, camera surveillance, circle of persons subject to an order of non-disclosure for personal safety reasons, smuggling of cigarettes, judgments of imposing a fine in the prevention of vandalism, need for a permit system for leasing companies, misuse of public services and benefits, deportation of foreign gang criminals, motorcycle gang members' wearing of a helmet
security of private weapons storage and shooting associations
enhanced intelligence picture in the prison institution and exchange of information when a gang member is released

National Security Council
preparedness in society for crime, strengthening cooperation between the authorities, international cooperation
use of technologies in general, automatic camera surveillance in border areas
expanding investigation possibilities: encrypted communication, secret coercive measures, searches of a domicile, investigation of suspected crimes committed by children
integrity of public decision-making, information management, biometric data, access to information in digital environments
prevention of insider and infiltration threats, prevention of the exploitation of public funds and companies, prevention of money laundering, prevention of drug-related crimes
utilizing administrative means, improving the recovery of criminal proceeds
reports on providing false information in a police interrogation, anonymous witnessing and the crown witness system
security stewards to make police work easier
review of the authorities’ crime prevention duties, municipalities’ crime prevention obligation

Table 4. Proposals for developing crime prevention and the preconditions for investigation in the strategic programs against organized crime in Denmark and Sweden

Sources: 2008/1 SF.L L 211; 2013/1 SF.L L 112; Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

In Nordic welfare policy and criminal policy, different forms of social support and services have a long tradition, which is also reflected in the strategic programs against organized crime. The measures included support and protect particularly children and young people, vulnerable areas and persons who require special protection in legal proceedings, in prisons and in exit programs. Forms of social support and other protective measures can be provided by both the authorities and other actors, and they can concern, for example, a group of persons, an area or an organization.

Denmark

Sweden

Crime Prevention Committee
funding of the SSP cooperation council (school, social services, police), instructions on SSP cooperation between municipalities and the police, targeted SSP cooperation to protect gang members' brothers
protecting vulnerable areas and groups from gangs, gang councils in vulnerable areas, knock-knock strategy, youth crime boards, pocket money work
instructions for municipalities on unwanted assembly rooms and how to prevent their use
more interviews on causes for concern with young people, working group to support municipalities’ work with risk groups
developing the training and access criteria of security stewards
expediting hearings, securing evidence, the defense attorney can process the matter for longer
assault alarms and secure legal proceedings for whistleblowers and witnesses
sheltered departments in prisons and remand imprisonment, protection of prisoners through transfers
enhancement of the exit program and expansion of the target group, exit point within the police, cooperation between the authorities, fund for special exit measures
national weapon return campaign without sanctions, return of weapons in the exit program without sanctions
flexibility in youth criminal care services (supervision, compliance with programs)

long-term activities of schools and social welfare authorities in vulnerable areas
early intervention in problems by social welfare authorities, evening and weekend standby duty in vulnerable areas, social preparedness groups
coordinated measures for risk groups, preventing young people from becoming socialized in crime
placement of young people outside the home, higher-quality placement locations for these young people
reducing the risks of recidivism
protection of and support to witnesses and their families, witness protection program
national exit program

Table 5. Proposals for developing social support and other forms of protection in the strategic programs against organized crime in Denmark and Sweden

Sources: 2008/1 SF.L L 211; 2013/1 SF.L L 112; Bandepakke III, 2017; Bandepakke IV, 2023, 34-punktsprogrammet, 2019; Regeringens skrivelse 2023/24:67.

The strategic programs against organized crime in Denmark and Sweden also include a wide range of organizations involved in combating organized crime. They include state, regional and municipal authorities as well as private sector, third sector and civil society actors. In addition, numerous research tasks and cooperation bodies show that work against organized crime is nowadays multidimensional and requires a broad knowledge base and dialog.

Over time, programs against organized crime have expanded into diverse policy programs in both countries. They include a wide range of preventive, repressive and administrative measures. The selection of measures varies from precisely targeted measures (e.g. areas, risk groups) to wide-ranging measures (e.g. quality of register data, international cooperation). These strategic programs have numerous links to many other policy programs that address the prevention of organized crime in some way. At the same time, this describes the extent of organized crime and the related separate phenomena as well as the resulting diverse needs for prevention policy.