Until approximately 1995, the Netherlands had a very low prison rate compared to the surrounding countries. David Downes, who made a comparison between the Dutch and the British penal policy, choose as a title for his book: Contrasts in Tolerance. He attributed the differences between England & Wales and the Netherlands, partly to the tolerant culture in the Netherlands compared to England & Wales (Downes, 1985: 69 e.v.). What exactly did he mean by tolerance in this context and in how far can this characteristic of Dutch penal policy explain the recent downfall of the Dutch prison population.