Hostname: page-component-8448b6f56d-gtxcr Total loading time: 0 Render date: 2024-04-18T02:05:50.971Z Has data issue: false hasContentIssue false

Understanding China's Court Mediation Surge: Insights from a Local Court

Published online by Cambridge University Press:  27 December 2018

Abstract

This article seeks to understand how reported mediation rates in Chinese courts are produced and what they actually signify. It analyzes data obtained through prolonged fieldwork at a court in central China. The article finds that the court has directly responded to central level mediation incentives by enhancing its overall mediation rate. It has done so strategically by seeking the highest increase using the fullest discretion in the mediation incentive structure and seeking to optimize the highest rate at the lowest cost and risk to the court. This has undermined the objectives of the central level incentives toward mediation, while also drawing the courts' scarce resources away toward unnecessary mediation practices, in part far removed from the courtroom. The article concludes by drawing out broader theoretical conclusions about how information asymmetries, discretion, and goal displacement play out in hierarchical control structures of authoritarian courts.

Type
Articles
Copyright
Copyright © American Bar Foundation, 2018 

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

Adler, Michael, and Asquith, Stewart. 1981. Discretion and Power. In Discretion and Welfare, ed. Adler, Michael and Asquith, Stewart, 932. London: Heinemann.Google Scholar
Balme, Stephanie. 2010. Local Courts in Western China: The Quest for Independence and Dignity. In Judicial Independence in China: Lessons for Global Rule of Law Promotion, ed. Peerenboom, Randall, 154–79. Cambridge: Cambridge University Press.Google Scholar
Birney, Mayling. 2012. Rule of Mandates Authoritarianism: Regime Stability and the Conditional Implementation of Village Elections in China (Unpublished manuscript on file with author).Google Scholar
Brodkin, Evelyn Z. 1986. The False Promise of Administrative Reform: Implementing Quality Control in Welfare. Philadelphia, PA: Temple University Press.Google Scholar
Brodkin, Evelyn Z. 1990. Implementation as Policy Politics. In Implementation and the Policy Process: Opening up the Black Box, ed. Calista, Donald J. and Palumbo, Dennis J., 107–18. New York: Greenwood Press.Google Scholar
Brodkin, Evelyn Z. 1997. Inside the Welfare Contract: Discretion and Accountability in State Welfare Administration. Social Service Review 71:133.Google Scholar
Cai, Yanmin. 2013. Zhongguo Minshi Sifaanjian Guanlijizhi Touxi [An Analysis of the Chinese Civil Case Management System]. China Legal Science 2013(1):131–43.Google Scholar
Chen, Feng, and Xu, Xin. 2012. “Active Judiciary”: Judicial Dismantling of Workers' Collective Action in China. China Journal 67:87107.Google Scholar
Chen, Shusen. 2013. Tiaojie Kaoping Tixi de fansi yu Chonggou–Jianping “Anjian Zhiliang Pinggu Zhibiao Tixi” zhong Tiaojielü de Gongneng Dingwei [Rethink and Reconstruct the Case Evaluation System on Mediation: Considering the Function of Mediation Rate in Case Quality Assessment System] [Homepage of Shanghai Court]. http://shfy.chinacourt.org/article/detail/2013/03/id/921778.shtml (accessed November 20, 2015).Google Scholar
Cohen, Jerome Alan. 1966. Chinese Mediation on the Eve of Modernization. California Law Review 54:1201–26.Google Scholar
Davis, Kenneth Culp. 1969. Discretionary Justice: A Preliminary Inquiry. Baton Rouge, LA: Louisiana State University Press.Google Scholar
Diamant, Neil. 2000. Conflict and Conflict Resolution in China: Beyond Mediation‐Centered Approaches. Journal of Conflict Resolution 44:523–46.Google Scholar
Edin, Maria. 2003. State Capacity and Local Agent Control in China: CCP Cadre Management from a Township Perspective. China Quarterly 173:3552.Google Scholar
Eisenhardt, Kathleen M. 1989. Agency Theory: An Assessment and Review. Academy of Management Review 14 (1):5774.Google Scholar
Fu, Hualing, and Choy, D. W. 2004. From Mediation to Adjudication: Setting Labor Disputes in China. China Rights Forum 6(3):1722.Google Scholar
Fu, Hualing, and Cullen, Richard. 2011. From Mediatory to Adjudicatory Justice: The Limits of Civil Justice Reform in China. In Chinese Justice: Civil Dispute Resolution in Contemporary China, ed. Margaret, Y. K. Woo and Gallagher, Mary E., 2557. Cambridge: Cambridge University Press.Google Scholar
Fu, Yulin, and Peerenboom, Randall. 2009. A New Analytical Framework for Understanding and Promoting Judicial Independence in China. In Judicial Independence in China: Lessons for Global Rule of Law Promotion, ed. Peerenboom, Randall, 95133. New York: Cambridge University Press.Google Scholar
Ginsburg, Tom, and Moustafa, Tamir. 2008. Introduction: The Functions of Courts in Authoritarian Politics. In Rule by Law: The Politics of Courts in Authoritarian Regimes, eds. Ginsburg, Tom and Moustafa, Tamir, 122. Cambridge: Cambridge University Press Cambridge.Google Scholar
Gray, Garry. 2006. The Regulation of Corporate Violations Punishment, Compliance, and the Blurring of Responsibility. British Journal of Criminology 46:875–92.Google Scholar
Gray, Garry C., and Silbey, Susan S. 2014. Governing inside the Organization: Interpreting Regulation and Compliance. American Journal of Sociology 120:96145.Google Scholar
Heilongjiang High Court. 2009. A Policy Breakthrough of Connecting People's Mediation with Civil Litigation [Homepage of Heilongjiang Department of Justice]. http://app.hljsf.gov.cn/News/2009/4/30/2093.html (accessed July 1, 2014).Google Scholar
Hu, Weixin. 2014. Zuigao renmin fayuan jueding quxiao dui quanguo ge gaojirenminfayuan kaohe paiming [The SPC decided to Revoke the Assessment and Ranking of the High Courts]. People's Court Daily, December 27, A1.Google Scholar
Huai, Yan. 1995 . Organizational Hierarchy and the Cadre Management System. In Decision‐Making in Deng's China: Perspectives from Insiders, ed. Hamrin, Carol Lee and Zhao, Suisheng, 3950. Armonk, NY: M. E. Sharpe.Google Scholar
Huang, Yasheng. 1996. Central‐Local Relations in China During the Reform Era: The Economic and Institutional Dimensions. World Development 24:655–72.Google Scholar
Hutter, Bridget M. 1997. Compliance: Regulation and Environment. Oxford: Oxford University Press.Google Scholar
Jiangsu Higher People's Court. 2011. The Bluebook of Civil Adjudication in Jiangsu Province [Homepage of Jiangsu court website]. http://www.jsfy.gov.cn/pdf/jsfylps.pdf (accessed November 28, 2012).Google Scholar
Kostka, Genia. 2015. Command without Control: The case of China's Environmental Target System. Regulation & Governance 10 (1): 5874.Google Scholar
Lange, Bettina. 1999. Compliance Construction in the Context of Environmental Regulation. Social & Legal Studies 8:549–67.Google Scholar
Li, Ling. 2015. “Rule of Law” in a Party‐State: A Conceptual Interpretive Framework of the Constitutional Reality of China. Asian Journal of Law and Society 2 (1): 93113.Google Scholar
Li, Yedan. 2015. Why Chinese Trial Judges Opt for Mediation. In Rechtspleging en Rechtsbescherming, ed. Bass, Reyer, Havinga, Tetty, Laemers, Miek, and den Tonkelaar, Hans, 221–30. Deventer, The Netherlands: Wolters Kluwer.Google Scholar
Lieberthal, Kenneth. 1992 . Introduction: The “Fragmented Authoritarianism” Model and Its Limitations. In Bureaucracy, Politics, and Decision Making in Post‐Mao China, ed. Lieberthal, Kenneth and Lampton, David M., 130. Berkeley, CA: University of California Press.Google Scholar
Liebman, Benjamin L. 2009. Assessing China's Legal Reforms. Columbia Journal of Asian Law 23: 1734.Google Scholar
Liebman, Benjamin L. 2011a. A Populist Threat to China's Courts? In Chinese Justice: Civil Dispute Resolution in Contemporary China, ed. Woo, Margaret Y. K. and Gallagher, Mary E., 269313. Cambridge: Cambridge University Press.Google Scholar
Liebman, Benjamin L. 2011b. A Return to Populist Legality? Historical Legacies and Legal Reform. In Mao's Invisible Hand, ed. Heilmann, Sebastian and Perry, Elizabeth J., 165200. Cambridge, MA: Harvard University Asia Center.Google Scholar
Lin, Yafang. 2012. Dang Fayuan Tiaojie Zaoyu “Zhixingnan”—Laizi A Xian Fayuan de Diaoyanbaogao [When Court Mediation Meets “Difficulties in Enforcement”—An Empirical Report from Basic People's Court A] [Homepage of China Procedure Law website]. http://civilprocedurelaw.cn/html/xzwy_1164_2856.html (accessed December 10, 2013).Google Scholar
Lipsky, Michael. 2010. Street‐Level Bureaucracy: Dilemmas of the Individual in Public Service. New York: Russell Sage Foundation.Google Scholar
Lloyd‐Bostock, Sally. 1992. The Psychology of Routine Discretion: Accident Screening by British Factory Inspectors. Law & Policy 14 (1): 4576.Google Scholar
Lou, Yinsheng. 2015. Meile Jinguzhou Banan Gengzhuanxin [Work Better without the Pressure of Ranking]. People's Court Daily, March 21, 001.Google Scholar
Lubman, Stanley. 1967. Mao and Mediation: Politics and Dispute Resolution in Communist China. California Law Review 55:12841359.Google Scholar
Lubman, Stanley. 1997. Dispute Resolution in China after Deng Xiaoping: Mao and Mediation Revisited. Columbia Journal of Asian Law 11:229391.Google Scholar
Ma, Jian. 2015. Shixian Shenpan Fuwu Jingjishehuifazhan de Xinchangtai‐2014nian Quanguo Fayuan Shenli Minshangshi Anjian Qingkuang Fenxi [An Analysis of the Civil and Commercial Cases in Chines Courts]. People's Court Daily, May 14, A5.Google Scholar
Ma, Xiaoying, and Ortolano, Leonard. 2000. Environmental Regulation in China: Institutions, Enforcement, and Compliance. Lanham, MD: Rowman & Littlefield.Google Scholar
Manion, Melanie. 1985. The Cadre Management System, Post‐Mao: The Appointment, Promotion, Transfer and Removal of Party and State Leaders. China Quarterly 102:203–33.Google Scholar
McBarnet, Doreen. 1988. Law, Policy, and Legal Avoidance: Can Law Effectively Implement Egalitarian Policies? Journal of Law and Society 15:113–21.Google Scholar
McBarnet, Doreen, and Whelan, Christopher. 1991. The Elusive Spirit of the Law: Formalism and the Struggle for Legal Control. Modern Law Review 54:848–73.Google Scholar
Mertha, Andrew. 2009. “Fragmented Authoritarianism 2.0”: Political Pluralization in the Chinese Policy Process. China Quarterly 200:9951012.Google Scholar
Merton, Robert K. 1940. Bureaucratic Structure and Personality. Social Forces 18:560–68.Google Scholar
Michelson, Ethan. 2008. Popular Attitudes towards Dispute Processing in Urban and Rural China [Homepage of the Foundation for Law, Justice and Society]. http://www.fljs.org/uploads/documents/Michelson%231%23.pdf (accessed November 11, 2015).Google Scholar
Minzner, Carl. 2009a. Judicial Disciplinary Systems for Incorrectly Decided Cases: The Imperial Chinese Heritage Lives On. New Mexico Law Review 39:6388.Google Scholar
Minzner, Carl. 2009b. Riots and Cover‐Ups: Counterproductive Control of Local Agents in China. University of Pennsylvania Journal of International Law 31:53123.Google Scholar
Minzner, Carl. 2011. China's Turn Against Law. American Journal of Comparative Law 59:935–84.Google Scholar
Moe, Terry M. 1984. The New Economics of Organization. American Journal of Political Science 28:739–77.Google Scholar
Nathan, Andrew J. 2003. Authoritarian Resilience. Journal of Democracy 14:617.Google Scholar
Ningbo Yinzhou Court. 2010. Li'an Ting Tiaojie Sucai Zu Chenggong Tiaojie Yipi 53qi Laodongzhengyi Xilie anjian Bing Cucheng Kuaisu Lüxing [Speedy Trial Group in Case‐Filing Division Successfully Mediated 53 Labor Disputes and Promoted Speedy Performance] [Homepage of Ningbo Yinzhou Court]. http://www.nbyzfy.gov.cn/html/xinwenzhongxin/gongzuodongtai/20100406/1081.html (accessed September 20, 2012).Google Scholar
Pan, Jianfeng, and Liu, Weizhe. 2010. Lun Fayuan Tiaojie Yu Jiufen Jiejue Zhi Guanxi [The relationship between Court Mediation and Dispute Resolution]. Journal of Comparative Law 4:7081.Google Scholar
Posner, Richard A. 2004. Judicial Behavior and Performance: An Economic Approach. Florida State University Law Review 32:1259–79.Google Scholar
Research Group of the Zhejiang High Peoples Court. 2010. Guanyu Renmin Tiaojiexieyi Sifaquren De Diaoyan [Empirical Studies on the Judicial Confirmation of People's Mediation Agreement]. People's Judicature [Renmin Sifa Yingyong] 23:6368.Google Scholar
Sappington, David E. 1991. Incentives in Principal–Agent Relationships. Journal of Economic Perspectives 5 (2): 4566.Google Scholar
Sargeson, Sally. 2002. Subduing “The Rural House‐Building Craze”: Attitudes towards Housing Construction and Land Use Controls in Four Zhejiang Villages. China Quarterly 172:927–55.Google Scholar
Shapiro, Susan P. 2005. Agency Theory. Annual Review of Sociology 31:263–84.Google Scholar
Shen, Jie. 2008. Labor Disputes and Their Resolution in China. Oxford: Chandos Publishing.Google Scholar
Shi, Yifan, and Van Rooij, Benjamin. 2014. Prosecutorial Regulation in the Global South: Environmental Civil Litigation by Prosecutors in China Compared to Brazil. Regulation & Governance 9 (3): e1e14.Google Scholar
Songer, Donald R., Segal, Jeffrey A., and Cameron, Charles M. 1994. The Hierarchy of Justice: Testing a Principal–Agent model of Supreme Court–Circuit Court Interactions. American Journal of Political Science 38:673–96.Google Scholar
Su, Yang, and He, Xin. 2010. Street as Courtroom: State Accommodation of Labor Protest in South China. Law & Society Review 44:157–84.Google Scholar
Talesh, Shauhin A. 2009. The Privatization of Public Legal Rights: How Manufacturers Construct the Meaning of Consumer Law. Law & Society Review 43:527–62.Google Scholar
Van Rooij, Benjamin. 2006. Regulating Land and Pollution in China: Lawmaking, Compliance, and Enforcement: Theory and Cases. Leiden, The Netherlands: Leiden University Press.Google Scholar
Van Rooij, Benjamin, and Lo, Carlos Wing‐Hung. 2010. Fragile Convergence: Understanding Variation in the Enforcement of China's Industrial Pollution Law. Law & Policy 32 (1): 1437.Google Scholar
Wang, Alex. 2013. The Search for Sustainable Legitimacy: Environmental Law and Bureaucracy in China. Harvard Environmental Law Review 37:365440.Google Scholar
Wang, Kun, and Liang, Xuefeng. 2013. Fayuan Zonghe Xinxi Guanli Xitong Yunxing zhong Cunzai de Wenti ji Duice [The Problems of the Operation of the Court's Collective Data Management System and the Solutions] [Homepage of Guang ming wang]. http://court.gmw.cn/html/article/201310/31/141178.shtml (accessed November 12, 2015).Google Scholar
Wang, Lin. 2012. Renmin Fayuan Anjian Zhiliang Pinggu Zhuyao Zhibiao Yanjiu [Study on the Main Targets of Court Case Quality Assessment System] [Homepage of official website of Guangxi Higher Court]. http://gxfy.chinacourt.org/public/detail.php?id=50406 (accessed November 13, 2015).Google Scholar
Waterman, Richard W., and Meier, Kenneth J. 1998. Principal–Agent Models: An Expansion? Journal of Public Administration Research and Theory 8 (2): 173202.Google Scholar
Whiting, Susan. 2004. The Cadre Evaluation System at the Grass Roots: The Paradox of Party Rule. In Holding China Together: Diversity and National Integration in the Post‐Deng Era, ed. Naughton, Barry J. and Yang, Dali L., 101–19. Cambridge: Cambridge University Press.Google Scholar
Wilson, James Q. 1989. Bureaucracy: What Government Agencies Do and Why They Do It. New York: Basic Books.Google Scholar
Xiang, Bo, and Guo, Yi. 2012. Chongci Shenpanzhixiao Diyi Zhenying [Dashing to the Best Case Quality]. People's Court Daily, November 27, 004.Google Scholar
Xiang, Ming, and Xiang, Binzhi. 2012. Weishenpangongzuo Chashang Keji de Chibang [Support the Judiciary's Work with Technology] [Homepage of the official website of Jiangsu Court]. http://www.jsfy.gov.cn/fyfc/ck63/2012/03/19134955726.html (accessed November 20, 2015).Google Scholar
Yan, Ge. 2011. Renmin Fayuan Anjian Zhiliang Pinggu Gongzuo de Licheng [The Road to the Court Case Quality Assessment System]. People's Court Daily, October 23, 002.Google Scholar
Yan, Jiyong. 2014. Zhuazhu Duanban Suozai Zhaozhun Jinshenzhijie [Find the Shortcoming, Find the Way to Improve]. People's Court Daily, May 1, 005.Google Scholar
Yang, Yizhong. 2014. Shaoxing: Zhua Guanli Qiangduiwu Tizhixiao [Shaoxing: Improve the Management, Enhance the Personal Growth and Upgrade the Case Quality]. People's Court Daily, January 14, 007.Google Scholar
Zhang, Liyong. 2010. The Annual Report of The Henan High Court in 2010. [Homepage of Henan Renda]. http://news.shangdu.com/10011702/2010/01/27/2010-01-27_333437_10011702.shtml (accessed December 20, 2015).Google Scholar
Zhang, Ruixue. 2012. Tisheng Shenpanzhixiao; Zhenzhuashigan Huizhuahuigan [Improve the Judicial Quality: Know How to Do Solid Work]. People's Court Daily, February 9, 005.Google Scholar
Zhang, Shouzeng. 2004, Creating a New Situation in Court Mediation: Vice Chief Justice Huang Songyou Meets the Press. People's Court Daily, September 17, 002.Google Scholar
Zhao, Xingjun. 2014. Zi Gong; Qidong Zhixiaoyuesheng de “Zongkaiguan” [Zi Gong: Turn on the Switch to Upgrading the Case Quality]. People's Court Daily, March 31, 008.Google Scholar
Zu, Xianhai. 2013. Hebeiqu: “Siweiyiti” Tisheng Shenpan Zhixiao [Hebei District: Improves the Case Quality in Four Dimensions]. People's Court Daily, May 28, 007.Google Scholar