Judicial Reform In China A Comin'?

Just read a rather interesting, but too short, article in the People's Daily Online, entitled, "China's chief justice calls for independent trial of lawsuits against government."  The article is on how China's chief justice, Xiao Yang, has "called for speedier reforms of the justice system to ensure independent trials of lawsuits against government bodies, mainly involving cases brought by individuals:"

He said courts must be allowed to try lawsuits against government bodies outside the area of the government body's authority to eliminate interference from local governments.

This would demonstrate the independence of the courts, he said

"If the lawsuits against government bodies are not tried fairly, the legitimate rights of litigants are not protected," Xiao Yang, president of China's Supreme People's Court (SPC), said at the fifth national meeting on trials of lawsuits against governments.

"Disputes between the public and government bodies, if not settled properly, will only lead to public grievances and affect social harmony and stability," Xiao said.

"They will also impair the authority of the people's courts and give the public cause to doubt the existence of social justice."

He has it mostly right. As things stand now, local courts are positioned such that they can be far too easily bullied/cajoled by local officials. The idea of moving government cases to outside regions where local officials would be presumed to have less influence does make some sense. 

This idea has its own flaws, however.  The increased distances will  necessarily lead to increased litigation costs.  I am also concerned that there will be horse-trading of rulings between neighboring courts and officials. 

China's courts have tremendous potential to serve as an outlet for rural grievances against local governments, but for them to do so effectively, they must be perceived as fair.  The best solution is a judiciary truly independent of local control.  But the fact that this issue is being seriously discussed at all is a good sign and does indicate further stirrings of judicial reform.   

Comments (28)

Read through and enter the discussion by using the form at the end
Ric - April 2, 2007 11:36 AM

how does the allocation of the judiciary work in China? Who decides which judges and prosecutors go where? Is it province-based or regional? In Italy it is regional and sometimes national. Could that be one of the steps to "geo-political" independence? A more decentrated allocation of judges and prosecutors could be one steady step? some light for me?

Joseph Wang - April 2, 2007 12:33 PM

Judiciary bodies are funded and largely staffed by local governments. They are nominally appointed by the local people's congresses, which means in practice the local communist party branch appoints them, with a rubber stamp from the organization department.

Most of the reforms that are being discussed would have intent of decreasing the linkage between courts and local governments.

Interestingly the reforms that are being discussed would have the affect of increasing central power as they would give the central government a means of enforcement that is more independent of local officials. This shouldn't be too surprising as judicial systems and centralized legal codes have tended to have the effect of increasing central control (witness for example the role of Federal courts in the United States).

Howard Lee - April 2, 2007 1:03 PM

I don't think that the CCP will push forward with the agenda described in the article. Perhaps the official recognizes the danger of the frustrations and injustice that exists in the rural countryside. However, to make a change such as what he described, I think, is like a legal Great Leap Forward. There are too many obstacles in the way to really see this through. It seems to me that it is assuming that a rule of law actually exists. There is also the problem of the central authority trying to assert its power to a local level, which is already hard enough in other areas. Local influence will override any demand from the center to enforce such legal reforms.

I am very pessimistic that the local courts can be an effective method for rural areas to address their grievances. The rural poor do not believe in the fairness of the courts or the existence of the rule of law. The best that they hope for now is that their pleadings will fall upon a sympathetic official's ear. Any effort for legal reform will be too little too late. It would be better to spend the political energy and resources in combatting corruption in the countryside, assuming that it can be fought politically. It can also be argued that corruption would have to be fought first anyway in order to bring any kind of legal reform to the local level.

nanheyangrouchuan - April 2, 2007 1:42 PM

"The idea of moving government cases to outside regions where local officials would be presumed to have less influence does make some sense. "

A more likely outcome is that the outside province/county hosting the trial pits the other two provinces/counties involved in a judicial auction to see who is willing to pay the most for a favorable ruling. And any complaining peasants will still be "hammered down" for standing up.

Mark Anthony Jones - April 2, 2007 5:23 PM

Dan wrote: "the idea of moving government cases to outside regions where local officials would be presumed to have less influence does make some sense." I agree, though I also agree with Joseph's point, that such reforms would increase the power of the central government. But this wouldn't necessarily be a bad thing, since the central government is, generally speaking, more enlightened and progressive than many local governments.

On a slightly different matter, I just finished reading a new book called "China Modernizes", just published a few months ago by Oxford University Press, written by an American lawyer named Randall Peerenboom. It's by far the best book on today's China that I have to date come across - his arguments about the nature of present day China mirror mine very closely (see my piece titled "On the nature of present day Chinese governance and society") though he draws upon different (but similar) evidence to support his views. A very impressive empirical study, and one that I highly recommend.

And finally, for those of you who have been reading Sinocidal lately, I would like to point out that the writer calling him or herself Chou Chou made a rather serious mistake when attributing me to comments made on the China Daily forum about the impact of McDonald's food on the Chinese populace. Chou Chou writes:

"Mark, the smell of schoolboy faeces still clinging to his hair, seems to blame McDonalds for all the present ills of China."

Not true. I did NOT write those comments on China Daily. I have not left comments on China Daily since last October/November.

For the record, the views expressed on China Daily attributed to me by Chou Chou do not even reflect my own views on the matter.

It's nice to see that people are still talking about me after all this time though, and that they're still accusing other people of being me.

For those of you who do want to know my views about China, you can visit my website, or, if you're interested in my views on Tibet, you can go to www.pbs.org/chinainside

You will not find accurate information about me and my views on Sinocidal though, that's for sure.

Mark Anthony Jones
Sydney, April, 4, 2007.

nanheyangrouchuan - April 2, 2007 7:07 PM

Mark, I feel your pain. I'm being spoofed on a variety of blogs including businessweek's comment section, for what reason I have no idea.

Joseph Wang - April 2, 2007 7:09 PM

I don't think that the central government is inherently more progressive than local governments, however a system of "checks and balances" in which central and local powers are balanced seems to be useful in keeping both in line.

PiPi - April 2, 2007 7:54 PM

MAJ - why do you feel you have to come to this blog to explain yourself and continue your verbal joust with ChouChou and Sinocidal. It's got nothing to do with anyone here (and I can't see why they'd even care) and unless you're planning on hiring the CLB team for a lawsuit against us then hush, be a big boy and keep your dirty washing elsewhere.

zzyzx - April 2, 2007 8:29 PM

It is a good move for judicial reform, but I doubt how much justice they can bring to each individual against government bodies by allowing such lawsuits outside the government body's authority. The government may try a few lawsuits like that to show people they care about individual�s legal rights and interests, equal before the law, but there are hundreds or thousands of such cases carrying on under their eyes, and they probably choose to do nothing. To me, without further political reform, such judicial reform most likely is another empty promise as if they have done with their anti-corruption campaign for the last ten years, losing more than it�s gaining.

China Law Blog - April 2, 2007 9:55 PM

Ric --

I wanted to be sure to get this answer correct so I consulted with co-blogger, Steve Dickinson on this and here is his response:

This is a very good question and it reveals a potential problem in the Chinese legal system. All decisions about prosecutors and judges are made by the provincial authorities. Unlike Japan and many European countries, judges and prosecutors never move outside their province. Within the province, the only movement is up the bureaucratic ladder. It is unusual for a judge or prosecutor to even move outside of the local region in which they are engaged for work except in cases where they are promoted to a higher level. Within any province, certain courts are considered more prestigious than others, so the goal of any judge or prosecutor is to get promoted into those particular courts. For example, in Shanghai, the Shanghai High Court is the most prestigious, so all judges hope someday to be appointed to that court. No judge in Shanghai would ever be appointed to the High Court in Hangzhou, the neighboring province. As you can see from this, the system promotes regional variation and regional protectionism. This is why in Japan [Korea does something similar], for example, judges are rotated on a three year cycle and are moved from province to province. They used to do the same thing in Imperial China, but not now. The Supreme Court in Beijing has overall control over judges, but does not make personnel decisions. So the control over judicial behavior is indirect.

China Law Blog - April 2, 2007 9:57 PM

Mr. Wang --

You are correct regarding the goal of increasing central power as the center is viewed (I think rightfully so) as less corrupt.

China Law Blog - April 2, 2007 10:12 PM

Mr. Lee --

I disagree. I agree it will be difficult, but I also believe the center very much wants to increase its power so it will try. I also think that bringing in the center is perhaps the best hope for reducing corruption.

China Law Blog - April 2, 2007 10:28 PM

nanheyangrouchuan --

Change has to start somewhere. Changes in institutions can lead to changes in personnel.

China Law Blog - April 2, 2007 10:32 PM

Mark --

I agree with you re the central government being a more progressive force here.

That does sound like a good book. Damn it, I am already so far behind in my reading I may never catch up, but I will put this on the list.

Seeing as how people have ascribed views to me that I have never held (and sometimes even find abhorent) and I always write as CLB, you have my sympathy.

China Law Blog - April 2, 2007 10:34 PM

nanheyangrouchuan --

What do the fake nhs say?

China Law Blog - April 2, 2007 10:36 PM

Mr. Wang--

Progressive may not be the right word. Sophisticated may be a better word. They certainly seem to better understand the need to squelch corruption.

China Law Blog - April 2, 2007 10:38 PM

PiPi --

No way am I going to get in the middle of this feud (or any other feud, for that matter).

China Law Blog - April 2, 2007 10:40 PM

zzyzx --

Small steps can be real steps. I look at the history of the United States and I know we didn't just get where we are now overnight. Not even close. We should be cheering on change in China, not poo-pooing it. Not all change will lead to improvements, but change that seeks improvement, even if it fails, can be a good thing.

nanheyangrouchuan - April 2, 2007 11:34 PM

"We should be cheering on change in China, not poo-pooing it. Not all change will lead to improvements, but change that seeks improvement, even if it fails, can be a good thing."

Too bad most of the "change" in china is window dressing to satisfy whiny westerners. The vast majority of people with some power have no intention of making changes that decrease their power, their wealth or make them accountable.

Hui Mao - April 3, 2007 1:14 AM

I think this is another positive sign that things are moving in the right direction. However, I could still see potential problems in the enforcement of court judgments since this will still be dependent on the local authorities.

Also, I want to note that the article says that 639,736 lawsuits against government bodies were tried between 2000 and 2006. I think that's a good indicator in the increasing faith people have in the fairness of the Chinese court system. If the Chinese courts are really just hopelessly corrupt tools of repression like some Western critics claim, then why would that many people spend the time and effort to go through the pointless exercise of taking the government to court?

China Law Blog - April 3, 2007 1:22 AM

Hui Mao --

Very good point re the number of cases and their meaning. I concur.

Serwat - April 3, 2007 2:23 AM

MAJ-

The web site you provided is inaccessible directly or via a proxy. I am located in Beijing.

I am interested to read more on your views. Can you direct me (and other interested, but blocked-off Beijingers) to another source?

Dan-

Kudos to you for steering clear of the feud (of any feud). While your frustrated commenting on other posts has added variety, it will be nice to have the 'old' Dan back (Even if, as a lawyer in the US, y'all "usually just pride ourselves on being a bunch of asses" and not the funniest people on Earth.)

sepa - April 3, 2007 3:41 AM

I would say this at least should be a genuine attempt instead of an empty promise. I don't think they can turn a blind eye to the growing numbers of mass incidents. They certainly feel the pressure and as a result have a real urge to do something about it. Without an effective judicial outlet, there is no buffer zone between the government office buildings and the disenfranchised crowds. And the police and paramilitary police brutalities help create a dangerous hissing pressure cooker. So they now realize that giving people a day in the court is the right way to go.

The reason that all concerned should be at least cautiously optimistic is that without an option to organically overhaul the system, what you should be glad to see is that it is going to evolve piecemeal along a right direction.

To constitute a court like this, I think the guiding principle is to delink the court with provincial governments and below,and therefore achieve the maximum independence from provincial and local governments. To these ends, the court should be a direct division of the PSC, which means members of the court should be appointed by chief justice of PSC, on PSC payroll, and of course sit in Beijing. I agree that this arrangement would essentially increase the central government power. But I think it's a good thing for the similar reasons some of you have already pointed out. There are some other issues I haven't quite thought through yet. The court sitting in Beijing may not have local expertise. And whether a centralized court can handle large volume of litigations is a concern, too. Local expertise issue might be resolved by randomly picking a member of the provincial high court when a particular province is involved. Volume can be controlled by denying jurisdiction for cases involving potential damages under certain level.

Finally, whatever setup you have, corruption has to be curtailed and court decisions have to have teeth.

Mark Anthony Jones - April 3, 2007 5:52 AM

Dan, you really ought to prioritise Pereenboom's book - I regard it as by far the best book ever published about the nature of today's China. I certainly know of no other that is more empirically based and fairly balanced in its conclusions.

I look forward to reading your thoughts about this important new book. It's well worth reviewing.

Mark Anthony Jones
Sydney, April 4, 2007

China Law Blog - April 3, 2007 9:13 AM

Serwat --

I am healthy again and would like to think I am back. I think you are right about my recent frustrations which I think are due in part to my venturing too far afield from the core of this blog. Thanks for your comment; I appreciate it.

China Law Blog - April 3, 2007 9:17 AM

Sepa --

I agree with everything you say, except if you are calling for the actual trials to take placed in Beijing.

China Law Blog - April 3, 2007 9:18 AM

Mark --

I will read it. Note how the lawyer in me prevents me from saying when.

How's this for a short term solution: Would you do a guest review on this blog?

Mark Anthony Jones - April 3, 2007 4:57 PM

Dear Dan - I would be more than happy to produce a guest review for this site, and I shall endeavour to do so sometime later today.

Serwat - I posted my arguments about Tibet on the www.pbs.org/chinainside discussion forum last year, while I was living in Hangzhou, and was able to continue the debate when later in Shenzhen, so I am surprised to hear that it is blocked in Beijing. Perhaps it is simply your server? For example, the Peking Duck site was accessible to me in Hangzhou from the uiversity campus I taught at, but was blocked by the internet provider the serviced my apartment connection. So perhaps you could try experimenting with different internet bars? My views about the nature of present day Chinese governance and society you can find at www.journeysthroughchina.blog.com As far as I know, this site should still be accessible throughout China. Perhaps I will post my views on the Tibet Question there sometime in the near future so that you will be able to more easily access it.

Best Regards,
Mark Anthony Jones
Sydney, April 4, 2007

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