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Public Access to Primary Legal Information in China: Challenges and Opportunities

Published online by Cambridge University Press:  12 June 2014

Xiaomeng Zhang
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Abstract

Despite a lack of a national legislation that mandates open government information in the People's Republic of China, each major government branch has taken proactive efforts to make primary legal information issued within their power available to the public. A close examination of Chinese official legal information portals on the national level reveal issues such as a lack of uniformity and a lack of access to authenticated primary legal information. This article, by Xiaomeng Zhang1, proposes a solution that would not only offer more consistent guidelines for the government but would empower the public to assert their right to primary legal information more powerfully and effectively.

Keywords

legal sourceslegal researchpublic accessPeople's Republic of China
Type
International Perspectives
Information
Legal Information Management , Volume 14 , Issue 2 , June 2014 , pp. 132 - 142
Copyright
Copyright © The Author(s) 2014. Published by British and Irish Association of Law Librarians 

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References

Footnotes

1 The author wishes to thank Mary Rumsey of the University of Minnesota Law School for her invaluable comments and help during the preparation of this article.

2 Measures on Publicising Guangzhou City Government Affairs (Trial) (Guangzhou Shi Renmin Zhengfu Gongkai Zhengwu Huodong Shixing Banfa) (1992, repealed 2002). The regulation was repealed by the Provisions of Guangzhou City on Open Governmental Information (Guangzhou Shi Renmin Zhengfu Xinxi Gongkai Guiding) (2002). Following that, about another fourteen local governments issued regulations or temporary measures on opening government information: Shenzhen City (2004), Shanghai City (2004), Chengdu City (2004), Hangzhou City (2004), Hubei Province (2004), Ningbo City (2004), Hebei Province (2005), etc.

3 Regulation of the People's Republic of China on Open Government Information (Zhonghua Remin Gongheguo Zhengfu Xinxi Gongkai Tiaoli) (2007).

4 Constitution of the People's Republic of China (Zhonghua Remin Gongheguo Xianfa) (“Xianfa”) (1982, last amended 2004)

5 Ibid. Art. 5 (English translation from the NPC Laws and Regulations Database.)

6 Legislation Law of the People's Republic of China (Zhonghua Remin Gongheguo Lifafa) (“Law on Legislation”), Arts. 7 & 23 (2000).

7 Ibid. Art. 42.

8 Ibid. Art. 47.

9 Ibid. Arts. 56 & 61.

10 Ibid. Art. 79.

11 Organic Law of the People's Courts of the People's Republic of China (Zhonghua Remin Gongheguo Remin Fayuan Zuzhi Fa)(1979, last amended 2006).

12 In practice, lower courts do follow higher court, especially SPC decisions. See Albert Chen (2011), An Introduction to the legal system of the People's Republic of China, 4th ed., LexisNexis Hong Kong, p. 167.

13 Notice of the Supreme People's Court on Issuing Guidance Cases (Zuigao Remin Fayuan Guanyu Fabu Zhidaoxing Anli de Tongzhi), Art. 2 (2010). The selection criteria are legally effective cases that “attract wide attention from society,” “contain legal provisions on principles of law,” “are typical,” “are difficult and complicated or novel,” or “otherwise have guiding function”. Ibid. [Translated by author]

14 For detailed discussions on China's newly developed “guiding case system” see Deng, Jinting. (2013) The guiding case system in Mainland China. Working Paper, available at http://papers.ssrn.com/sol3/papers.cfm?abstract_id=2318958; Zhang, Zhiming. Woguo Fayuan Anli Zhidao Zhidu de Quanxin Dingwei, GuangMing Daily (Shanghai, 29 June 2011); Wang, Lifeng. (2013) The necessity and function of China's Guiding Cases, available at http://cgc.law.stanford.edu/wp-content/uploads/2013/10/CGCP-English-Commentary-9-Professor-Wang.pdf (last visited Mar. 10, 2014)

15 Ibid. Art. 13.

16 Chen, Albert. (2011) An Introduction to the legal system of the People's Republic of China. 4th ed. Hong Kong, LexisNexisGoogle Scholar. 166

17 Xianfa (n 3), Art. 129. More specifically, it is empowered to “exercise procuratorial authority over treason cases,” “conduct investigations on criminal cases,” “review cases investigated by public security organs and determine whether to approve arrest, prosecute or exempt, as well as supervise investigatory activities of public security organs,” “initiate public prosecutions on criminal cases,” etc. See Organic Law of the People's Procuratorates of the People's Republic of China, arts. 2–5 (1979, last amended 2006). [English translation from the NPC Laws and Regulations Database] The People's Procuratorate also has jurisdiction over crimes of corruption, bribery, dereliction of duty and infringement. See http://www.spp.gov.cn/

18 Notice of the Supreme People's Procuratorate on Publishing and Printing the Provisions of the Supreme People's Procuratorate on the Judicial Interpretation Work (Zuigao Remin Jiancha Yuan Guanyu Yinfa Zuigao Remin Jianchayuan Sifa Jieshi Gongzuo Guiding de Tongzhi), Art. 5 (2006).

19 Notice of the Supreme People's Procuratorate on Publishing and Printing the First Set of Guiding Cases (Zuigao Remin Fayuan Guanyu Yinfa Diyipi Zhidaoxing Anli de Tongzhi) (2010).

20 Xianfa (n 3), arts. 62, 63 & 67.

21 Clarke, Donald C. (2003) China's Legal System and the WTO: Prospects for Compliance, Washington University Global Studies Law Review 2, 98–102.Google Scholar

22 Xianfa (n 3), art. 67.

23 Law of the People's Republic of China on the Procedure of the Conclusion of Treaties (Zhonghua Remin Gongheguo Dijie Yiaoyue Chengxu Fa), Art. 7 (1990).

24 Law on Legislation (n 5), Arts. 7 & 41 (2000).

25 For example, Article 238 of the Civil Procedure Law of the People's Republic of China states “[i]f an international treaty concluded or acceded to by the People's Republic of China contains provisions that differ from provisions of this Law, the provisions of the international treaty shall apply, except those on which China has made reservations”. See Civil Procedure Law of the People's Republic of China (Zhonghua Remin Gongheguo Minshi Susong Fa), Art. 238 (1991, last amended 2007) [English translation from the NPC Laws and Regulations Database].

26 Xianfa (n 3), Art. 34.

27 Xianfa (n 3), Art. 41. [English translation from NPC Laws and Regulations Database]

28 See Xianfa (n 3), Art. 2. Without the right to acquire government information from authentic sources, any suggestions or criticism will not be beneficial; without the right to acquire government information from official sources, citizens will not be able to exercise their right to vote in an informed and wise manner; and without the right to acquire government information, any effort for the people to influence governmental affairs would be futile.

29 Universal Declaration of Human Rights, G.A. Res. 217 (III) A, U.N. Doc. A/Res/217 (III), Art. 19 (Dec. 10, 1948).

30 See Declaration (n 28) Preamble.

31 See https://treaties.un.org/Pages/ViewDetails.aspx?src=TREATY&mtdsg_no=IV-4&chapter=4&lang=en#4

32 International Covenant on Civil and Political Rights, G.A. Res. 2200A(XXI), 999 U.N.T.S. 171 (Mar. 23, 1976).

33 See State Council Information Office (2013), White Paper: Progress in China's Human Rights in 2012, available at http://www.china.org.cn/chinese/2013-05/14/content_28819357_8.htm (last visited Mar. 20, 2014).

34 World Trade Organization (2011) Understanding the WTO: Basics, 5th ed. Geneva, World Trade Organization. 10–13.Google Scholar

35 General Agreement on Tariffs and Trade, 61 Stat. A-11, 55 U.N.T.S. 194, art. X (Oct. 30, 1947).

36 Agreement on Government Procurement, 1867 U.N.T.S. 111 (Apr. 15, 1994).

37 Demetrios Marantis (n.d.) The WTO Government Procedure Agreement: Tremendous opportunity of China, available at http://shenyang.usembassy-china.org.cn/wto-gpa.html (last accessed Mar. 10, 2014).

38 See Introduction.

39 For example, Article 82 of the Food Safety Law of the People's Republic of China mandates a uniform system of releasing food safety information to the public.

40 Law of the People's Republic of China on Guarding State Secrets (Zhonghua Remin Gongheguo Baohu Guojia Mimi Fa) (2010)

41 Law on Legislation (n 5), Art. 52.

42 NPCSC Legal Affairs Working Committee, ZhongHua Renmin Guoheguo Lifafa Shiyi (2000)

43 Law on Legislation (n 5), Art. 35.

44 OGI (n 2), Art. 2 [translated by author]

45 Ibid. Art. 9.

46 Ibid. Art. 10.

47 Ibid. Art. 15.

48 Ibid. Art. 18.

49 Administrative Measures for the Proclamation of Judicial Documents by the Supreme People's Court (Zuigao Remin Fayuan Caipan Wenshu Gongbu Guanli Banfa) (2000).

50 Provisions of the Supreme People's Court on the Issuance of Judicial Documents on the Internet by People's Courts and Provisions on the Live Broadcasting and Re-broadcasting of Court Trials by the People's Courts (Zuigao Remin Fayuan Guanyu Remin Fayuan zai Hulianwang Gongbu Caipan Wenshu de Jueding ji Zuigao Remin Fayuan Guanyu Remin Fayuan Zhibo he Congbo Tingshen de Jueding) (2010).

51 Provisions of the Supreme People's Court on the Issuance of Judgments on the Internet by the People's Courts (Zuigao Remin Fayuan Guanyu Remin Fayuan zai Hulianwang Gongbu Caipan Wenshu de Jueding) (2013).

52 Ibid. Preamble [translated by author].

53 Ibid. Art.1

54 Ibid. Art. 4

55 Ibid. Arts. 6 & 7

56 Ibid. Art. 12 [translated by author].

57 Notice of the Supreme People's Court on Promulgating the Second Five-Year Reform Plan (2004-2008) (Zuigao Remin Fayuan Guanyu Yinfa Dierge Wunian Gaige Gangyao de Tongzhi) (2005)

58 Notice of the Supreme People's Court on Issuing the First Set of Guiding Cases (Zuigao Remin Fayuan Guanyu Fabu Diyipi Zhidaoxing Anli de Tongzhi) (2011); Notice of the Supreme People's Procuratorate on Issuing the First Set of Guiding Cases (Zuigao Remin JianchaYuan Guanyu Fabu Diyibi Zhidaoxing Anli de Tongzhi) (2010).

59 Li JianXiong v. Guangdong Province Ministry of Transportation on Open Government Information [2014], SPC Guiding Case No. 26. Similar to US government agencies following Freedom of Information Act of the U.S., many governmental agencies in China, in accordance with the OGI, allows the public to submit their request for release of government information through different channels. Some allow submissions through an online database or information network. In this case, the plaintiff submitted his request through an online government public information network on June 1, 2011. The system acknowledged successful submission of the request on the same day. According to article 24 of the OGI, for information that government cannot provide immediately, the government shall respond to the OGI request within 15 business days of a receipt of the OGI request. In this case, the court held that the system acknowledgment of successful submission is sufficient to be counted as the receiving day.

60 Civil Procedure Law of the People's Republic of China (Zhonghua Remin Gongheguo Minshi Susong Fa), Art. 134 (1991, last amended 2012) [English translation from the NPC Laws and Regulations Database]; Criminal Procedure Law of the People's Republic of China (Zhonghua Remin Gongheguo Xingshi Susong Fa), Art. 183 (1979, last amended 2013); Administrative Litigation Law of the People's Republic of China (Zhonghua Remin Gongheguo Xingzheng Susong Fa), Art. 145 (1989).

61 Civil Procedure Law of the People's Republic of China (Zhonghua Remin Gongheguo Minshi Susong Fa), Art. 134 (1991, last amended 2012) [English translation from the NPC Laws and Regulations Database].

62 OGI (n 2), Art. 13.

63 Ibid. Art. 14.

64 Ibid. Art. 8.

65 State Secrets Law (n 41), Arts. 9 & 10.

66 Ibid. Art. 4 [translated by author].

67 Circular of the State-owned Assets Supervision and Administration Commission of the State Council on Printing and Issuing the Interim Provisions on Protection of Trade Secrets of Central Enterprise (Guwuyuan Guoyou ZiChan Jiandu Guanli Weiyuanhui Guanyu Yinfa <Zhongyang Qiye Shangye Mimi Baohu Zanxing Guiding> de Tongzhi) (2010)

68 For example, Law on Legislation (n 5), Art. 52.

69 For example, see Sha, Zhenjiang. (2004) Discussion on the evaluation standard of the law website. Journal of Information 23, 10–11Google Scholar; Jiang, Jun. (2012) Lifa Jiguan FaLv Wangzhan de Shizheng Fenxi he Bijiao Fenx. Information and Research of Legal Literature 3, 7–23Google Scholar; Yan, Guangyong. (2013) Woguo Falv Wangzhan Bijiao Fenxi. Information and Research of Legal Literature 1, 1–3Google Scholar; Zhao, Xiaohai, He, YuanQiong & Guo, Ye. (2013) Lun Falv Xinxi Gongkai yu Falv Wangzhan, Information and Research of Legal Literature 4, 4–12Google Scholar; Liu, Lijun & Yu, Liying. (2013) Shuzihua he Chuantong Beijing zhong de Caipan Wenshu Gongkai Jizhi, FaXue 8, 59–67.Google Scholar

70 http://www.npc.gov.cn/npc/flcazqyj/node_8176.htm.

71 http://www.npc.gov.cn/npc/flsyywd/node_1793.htm.

72 http://law.npc.gov.cn/home/begin1.cbs.

73 http://www.npc.gov.cn/npc/flcazqyj/2008-04/22/content_1464905.htm.

74 Law on Legislation (n 5), Art. 52.

75 http://www.npc.gov.cn/wxzl/gongbao/node_4508.htm.

76 http://www.npc.gov.cn/npc/xinwen/newwxzl.htm.

77 http://www.npc.gov.cn/npc/flsyywd/node_1793.htm.

78 http://www.npc.gov.cn/npc/flsyywd/flwd/node_1859.htm.

79 http://www.npc.gov.cn/englishnpc/iframe/about_us.htm.

80 http://www.npc.gov.cn/englishnpc/news/index.htm.

81 http://www.npc.gov.cn/englishnpc/Law/Integrated_index.html.

82 http://www.npc.gov.cn/englishnpc/Law/Integrated_index.html.

83 http://www.gov.cn/xinwen/2014-03/01/content_2626102.htm.

84 http://www.gov.cn/xinwen/2014-03/01/content_2626102.htm.

85 OGI (n 2), Art. 1.

86 http://www.gov.cn/foot/2014-02/18/content_2611908.htm.

87 Law on Legislation (n 2), Art. 62.

88 http://english.gov.cn/laws/laws.htm.

89 http://english.gov.cn/official/official.htm.

90 http://www.whfzb.gov.cn/site/publish/whfzb/C1201110271420300045.shtml.

91 http://www.chinalaw.gov.cn/article/fgkd/xfgwd/index.shtml.

92 http://search.chinalaw.gov.cn/search2.html.

93 http://www.chinalaw.gov.cn/article/fzts/.

94 Notice of the State Council Legal Affair Office on Solicitation of Public Comments on China Legal Information Network (Guowuyuan Fazhiban Jiu Zhongguo Falv Xinxiwang Gongkai Zhengqiu Yijian de Tongzhi) (2011).

95 http://www.chinalaw.gov.cn/article/english/.

96 http://www.court.gov.cn/gywm/.

97 http://zhixing.court.gov.cn/search/

98 Several Provisions of the Supreme People's Court on the Handling of Objections to Information on the National Court Information Inquiry Platform of Persons Subject to Enforcement (Zuigao Remin Fayuan Guanyu Quanguo Fayuan Bei ZhixingRen Xinxi Chaxun Pingtan Xinxi Yiyi Chuli de Rougan Guiding) (2009).

99 http://jubao.court.gov.cn.

100 http://www.chinacourt.org/article/detail/2012/03/id/473806.shtml.

101 http://www.chinacourt.org/index.shtml.

102 Court Notices (Fayuan GongGao) include notices served on individuals or issued to the public by the people's courts in relation to court proceedings. According to the 2005 Notice of the Supreme People's Court on Further Providing Uniformity of Promulgations of Court Public Announcements, all public notices related to the court litigations, issued by the people's court must and can only be published on People's Court Daily, the official newspaper of the Supreme People's Court.

103 http://www.court.gov.cn/zgcpwsw/.

104 http://www.rmfygg.com.

105 Notice of the Supreme People's Court on Further Standardising of Promulgations of Court Notices (Zuigao Remin Fayuan Guanyu Jinyibu Guifan Fayuan Gonggao Fabu de Tongzhi) (2005).

106 http://ipr.court.gov.cn/.

107 http://old.chinacourt.org/public/detail.php?id=448893.

108 http://tv.chinacourt.org.

109 http://ts.chinacourt.org.

110 http://en.chinacourt.org.

111 http://www.spp.gov.cn/gjgb/.

112 http://www.spp.gov.cn/flfg/.

113 http://218.94.1.173.

114 It refers to crimes relating to corruption, bribery, and embezzlement that are within SPP's jurisdiction in accordance with the Article 18.2 of the Criminal Procedure Law of the People's Republic of China. See http://www.12309.gov.cn.

115 http://www.yfw.com.cn/xhfzdacx/.