UKAJI Research Roadmap FINAL 100817 - UKAJI | The UK Administrative Justice … · 2017-08-10 ·...

www.ukaji.org [email protected]

Wherehavewebeenandwheredoweneedtogowithresearchonadministrativejustice?

AUKAJIconsultation

Thisisaconsultationonaproposedroadmap1onthefutureresearchneedsinadministrativejustice.ItisderivedfromtheworkoftheUKAdministrativeJusticeInstitute(UKAJI),2anindependentresearchinitiativeestablishedwithfundingfromtheNuffieldFoundationin2014.UKAJI’sprimarytaskshavebeentobringtogetherthoseinvolvedinresearch(researchers,researchusers,policymakers,practitioners,andothers)tostimulateempiricallybasedresearchintoadministrativejusticeandtodesignanagendaforfutureresearch.Ourkeylearningpointshavebeenthatcoordinationofresearchisneeded,amongresearchesandresearchusers,fundersandcommissionersofresearch;thatthecurrentcontextbringsnewanduntestedpressuresontothosewhouseandworkwithinadministrativejustice;andthatresearchshouldfocusonoverarchingprinciples,includingfairness,accountabilityandhumanrightsprinciples.Ourproposedroadmapidentifiesinparticularthechallengesofdigitalisationandprioritiesrelatingtopeople,processesandinformation.Wesetoutwhatwethinkthesechallengesandprioritiesareandinviterobustandhonestfeedbacktothisconsultation.

SECTION1–Wherewe’vebeen 21.1Theimportanceofempiricalresearchintoadministrativejustice 21.2Theroadtravelledsofar 6

SECTION2–Wherewearenow 122.1Thechangingcontext 122.2Challengesandobstacles 16

SECTION3–Whereweneedtogo 253.1Afreshstrategicandinstitutionalapproach 253.2Futureresearchpriorities 27

Howtorespond 32 1Thistermisusedinsteadof‘agenda’becauseitsuggestsadirectionanddestination.ItisusedbytheGovernmentDigitalServiceinsettingoutitsplansfortransformingthewaycitizensaccessgovernmentservicesongov.uk-https://gds.blog.gov.uk/2017/02/27/how-were-making-gov-uk-work-harder-for-users/2UKAJIisbasedattheUniversityofEssex.MoreinformationonUKAJI,includingitspeople,blogandotherresources,isatwww.ukaji.org.ThispaperhasbeenpreparedbytheUKAJIcoreteamwithinputfromthewidercoreteam,AdvisoryBoard,andotherstakeholders.GraphicsproducedbyRicardoVernaglia.

ResearchRoadmap

CONTENTS

UKAJI-Administrativejusticeresearchroadmap ConsultationAugust/Sept2017

www.ukaji.org [email protected] 2

1.1Theimportanceofempiricalresearchintoadministrativejustice

Whatisadministrativejustice?Statutereferstoitas‘theoverallsystembywhichdecisionsofanadministrativeorexecutivenaturearemadeinrelationtoparticularpersons,including(a)theproceduresformakingsuchdecisions,(b)thelawunderwhichsuchdecisionsaremade,and(c)thesystemsforresolvingdisputesandairinggrievancesinrelationtosuchdecisions’.3Whilethisgivessomesenseoftherangeofprocessesinvolved,italsoindicatesthatthereisnosingle‘system’ofadministrativejusticeintheUK.4Aswellasbeingconceivedasasystem,administrativejusticeisanapproach,awayoflookingattheinteractionbetweenpeopleandthegovernmentsandotherpublicbodiesthatmakedecisionsaboutawiderangeofaspectsofeverydaylife.Itincorporatesthinkingaboutdesignofthelandscapeofthesystemanddesignoflegislativeschemes;decision-makingguidance;specificprocesses;andredress.Administrativejusticeisfundamentallyconcernedwithensuringthatdecisionsofpublicbodiesandtheiragentsareproperlymade,thatpeople’srightsarerespected,thattheyaretreatedfairly,andthattheyhaveeffectiveroutestoredresswhenthingsgowrong.Implicitinthisaretheassumptionsthatadministrativesystemsshouldensurethattheseneedsaremetandthatdecision-makersareresponsivetocriticismandcapableoflearningandimprovingwhenerrorsarerevealed.Scale,relevanceandreachThesignificanceofresearchinthisareaisrootedinthescale,relevanceandreachofadministrativejustice,allofwhichsuggesttheneedforaproactiveapproachtoresearch.Intermsofscale,administrativejusticedirectlyaffectsmanymorepeoplethaneitherthecriminalorciviljusticesystems.Intermsofitsrelevance,administrativejusticeconcernsdecisionsaffectingmanyareasofourlives–somerelativelyroutine,concerningmatterssuchasparkingoffences;othersofvitalimportancetopeople’slivingstandards,suchassocialsecurity,socialcareandhealth,schoolsandhousing;andothersconcerningfundamentalrightssuchasliberty,asylumandtherighttoinformation.5Intermsofreach,administrativejusticeextendsbeyondthecourtortribunalsystemsandincludespolicyanditsapplication,accesstoadvice,andinitialdecision-makingbycentralandlocalgovernmentdepartmentsandprivate-sectoragentswhodeliverpublicservicesontheirbehalf.Fromtheperspectiveofaccesstojustice,administrativejusticeisdistinctinanumberofways.AsMullennotes,itmakesuseofawiderrangeofremediesforresolvingdisputesbetweencitizenandstatethandocivilorcriminaljustice,inwhichdisputeresolutionisconfinedmainlytocourts6,includingtribunals,ombudschemes,complaintsproceduresandvarioushybrids3TribunalsCourtsandEnforcementAct2007,Sch7para13(4).4Formorediscussionofwhatisadministrativejustice,seehttps://ukaji.org/what-is-administrative-justice/5Foranexcellentoverviewofthereachofadministrativejustice,seeSTAJAC(2015),‘Makingdecisionsfairly:DevelopingexcellenceinadministrativejusticeinScottishcouncils’,pp.8-9,http://www.adminjusticescotland.com/documents/Event%20Documents/Making_decisions_fairly.pdf6Mullen,T(2016),‘AccesstoJusticeinAdministrativeLawandAdministrativeJustice’,inPalmer,Eetal(2016),AccesstoJustice:BeyondthePoliciesandPoliticsofAusterity,HartPublishing.

SECTION1–Wherewe’vebeen



includingpublicinquiry-baseddecision-makingprocesses.Mostoftheseroutestoremedyweredesignedtoprovide‘do-it-yourselfjustice’,withouttheneedforlawyers.7

Manyfeaturesofthejusticesystem,includingthoseassociatedwiththecurrentreformprogrammesuchascutbacksinlegalaid,digitalisation,onlinedisputeresolution,andautomateddecision-making,arelikelytohavedistinctiveimplicationsforadministrativejustice.Notleastthisisbecauseofthelargenumberofpeopleaffectedandtheirdemographiccharacteristics;thescaleofpublicexpenditureinvolved;andtheparticularplaceofgovernmentpolicyindecision-making.Thisiswhygovernment,practitionersandacademicsderivevaluefromsoundempiricalresearchonadministrativejustice.Forexample,pilotstrialedinonepartofthesystemhaveimplicationsforotherparts;lessonslearnedfromfeedbackoncomplaintscanbetranslatedacrosspublicservices.Moreover,administrativejusticeisnotexclusivelyaboutjusticedispensedbytribunalsorcourts.Italsoextendstothequality,orjustice,ofdecision-

makingbeyondthecourtortribunalsystems.Itisconcernedwiththedirectcontactspeoplehavewithgovernmentanditsagents.Itisabouthowgovernmentdecisions,andthepolicybehindthem,affectpeopleandhowdecisionscanbequestioned.Unliketheciviljusticesystem,whereinteractionstartswithadisputetoberesolved,administrativejusticestartswithadecisionbyapublicbody.DesignconcernsResearchershavepointedoutthatensuringeffectiveaccountabilityofexecutiveauthoritiesinamodern,democraticstateis‘adesignproblemthatcanonlybemanaged,notsolved’.8Thomas

7Ibid.8Mashaw,J(2009),‘Bureaucracy,DemocracyandJudicialReview:TheUneasyCoexistenceofLegal,ManagerialandPoliticalAccountability’,YaleLawSchool,PublicLawWorkingPaperNo.194,https://papers.ssrn.com/sol3/papers.cfm?abstract_id=1431601,asquotedinRThomasandJTomlinson(2017),‘ADesignProblemforJudicialReview:Whatweknowandwhatweneedtoknowaboutimmigrationjudicialreviews’,https://ukaji.org/2017/03/15/a-design-problem-for-judicial-review-what-we-know-and-what-we-need-to-know-about-immigration-judicial-reviews/



andTomlinsonnotethatcurrenttrendsinimmigrationjudicialreviews,forexample,‘undoubtedlypresentaseriousdesignproblemfortheUKadministrativejusticesystem.Ifthereistobeanewsolutiontothisgrowingsystem-managementproblem,thebestsolutionwillbeonethatisinformedbyrigorousempiricaldata.’9Tomlinsonhasnotedthatdesignthinkingplaces‘emphasisonquickprototyping,frequenttesting,andtheuser-perspective’andincludesarangeofspecificmethodssuchasmapping‘theuserjourney’.10Gillandothershaveproposedthatdesignofdisputeandredressmechanismsrequireurgentattentiontoaddresstheadhocandinconsistentdevelopmentofthedisputeresolutionlandscape;failuretoaddressthis‘risksunderminingthelegitimacyofstate-sanctioneddisputeresolution’.11BondyandLeSueurhaveexploredmodelsofredressandproposedprinciplestounderpinredressdesign.12PolicyandprincipleMorebroadly,administrativejusticeisaboutthewaypolicyisdelivered:thefairnessandefficiencyofthesystemsandwhethertheyaredeliveringappropriateoutcomesforpeople.Forinstance,ispublicmoneybeingusedtoachievethedesiredends,andarepeoplegettingtheirentitlements?Arepolicyanditsapplicationdesignedtoachieveasystemthatrunssmoothly,ortoaddresstheproblemsthatpeopleencounter,orboth?Aredecision-makersempoweredtoapplynotjustthelawbutalsoprinciplesoffairness?Thesequestionsindicatethatthereisaneedtoevaluateandunderstand,throughtestingandempiricalresearch,howsystemsworkandhowpolicychangeimpactsondifferentpartsofthepopulation:whomaygainintheprocessandwhomaylose,andwhatthecumulativeeffectsofthisare.

Oursisnotthefirstattempttomapresearchneedsconcerningadministrativejustice,andthispapermaybeplacedinthecontextofpreviousworkdone.

9Thomas,RandTomlinson,J(2017),‘ADesignProblemforJudicialReview:Whatweknowandwhatweneedtoknowaboutimmigrationjudicialreviews’,https://ukaji.org/2017/03/15/a-design-problem-for-judicial-review-what-we-know-and-what-we-need-to-know-about-immigration-judicial-reviews/10Tomlinson,J,‘ThePolicyandPoliticsofBuildingTribunalsforaDigitalAge:How‘DesignThinking’IsShapingtheFutureofthePublicLawSystem’,U.K.Const.L.Blog(21stJul2017)(availableathttps://ukconstitutionallaw.org/))11Gill,C,Williams,J,Brennan,CandHirst,C(2016),‘Designingconsumerredress:adisputesystemdesign(DSD)modelforconsumer-to-businessdisputes’,LegalStudies,36:438–463.12Bondy,VandLeSueur,A(2012),‘DesigningRedress:astudyaboutgrievancesagainstpublicbodies’,PublicLawProject,availableathttp://www.publiclawproject.org.uk/resources/123/designing-redress-a-study-about-grievances-against-public-bodies

UKAJIRoadmap

AJTCResearchAgenda

LawintheRealWorld

Empiricalresearchis‘thestudythroughdirectmethodsoftheoperationandimpactoflawandlegalprocessesinsociety,withaparticularemphasisonnon-criminallawandprocesses.’



TheAJTC’sresearchlegacyAnticipatingitsabolition,in2013theAdministrativeJusticeandTribunalsCouncil(AJTC)publisheditsResearchAgendahopingto‘preventaresearchvacuum’andtoprovideasteerandsenseofdirectiontoresearchfunders,commissionersandresearchers.TheAJTCstressedthatresearchcanbe‘vitalforthefuturedevelopmentofadministrativejusticepolicy’andthatitwasimportantthat‘theroleofresearchinprovidinganalysisandevaluationofpastandfuturepoliciesrelatingtoadministrativejusticeshouldcontinueintheeventofAJTC’sabolition’.Suchevaluation,theAJTCsaid,‘ensuresthattheadministrativejusticesystemis‘fitforpurpose’andworksforthemutualbenefitofusers,serviceprovidersandthepublicpurse’.Recognisingtheneedtolinkresearchwiththechangingpolicycontextandreforms,theAJTCflaggedupthewide-rangingreformsinareassuchassocialsecurity,health,educationandlocalgovernment:

‘Anychangestopoliciesinfieldsofadministrativejusticewillhaveamajorimpactonlargenumbersofpeople,oftenthemostvulnerableinsociety.…itisessentialthatmajorinnovations,suchastheshifttoUniversalCreditandPersonalIndependencePayment,aremonitoredandevaluatedthroughresearchassessingtheirimpactonthequalityanddeliveryofpublicservicesandthecoststothepublicpurse.’

TheAJTCmadethreepreliminarypoints:first,thatproposedresearchneednotinvolvelarge-scalestudies;itcaninvolve‘short,focusedpiecesofworktargetedatspecificpolicies’.Inthissense,workcouldbebroadordeep.Second,researchcouldbe‘descriptive,evaluative,and/ornormative’.Third,researchintoadministrativejustice‘wouldbenefitfromamulti-disciplinaryapproachandshouldnotbeconfinedtolegalscholars’.InthiscontexttheAJTCspecificallymentionedtheexpertiseofbehaviouraleconomistsorsociologistsintheareaofsocialsecurity,whereappealsuccessrateswererelativelyhigh.TheAJTCidentifiedthreebroadareasofresearchneedsinadministrativejustice:

• Theneedtomonitortheimpactofinstitutionalorstructuralchangethroughtheuseofmeaningfulstatisticsofempiricalvaluetothequestionsbeingconsidered

• Theneedtoevaluatetheprotectionaffordedtoadministrativejusticeprinciples-e.g.timeliness,independence,fairness,publicaccountability

• Theextenttowhichthemistakesofexecutiveagenciesexposedbyappealsandcomplaintsarelearnedfromandcorrectedinfutureactivities,andofthevalueoffeedback

LawintheRealWorld:empiricalworkmattersbutthere’salackofcapacityIn2006theNuffieldFoundationfundedaninquiryintoissuesfacingempiricallegalresearch.Theinquiryreport,LawintheRealWorld,attemptstodevelopempiricalresearchcapacityandexplainswhyempiricallegalresearchmatters:

‘Putsimply,empiricalresearchhelpsustounderstandthelawbetterandanempiricalunderstandingofthelawinactionhelpsustounderstandsocietybetter….[T]heworkofempiricallegalresearchersalsoinfluencesthedevelopmentofsubstantivelaw,theadministrationofjustice,andthepracticeoflaw.’

Theauthorsexplainwhyempiricalresearchinnon-criminalareasofjusticewasinpotentialcrisis,duetolackofcapacityandskillstoundertakeempiricalstudies,thedifficultiesinconductinginterdisciplinarystudies,fundingconstraintsandotherissues.Itwasnotedthat‘thenumberofempiricalresearchersworkingonanyparticularareaisverysmallandthecoverageofissuesisthinandpatchy,withentireareaslargelyuntouched.Therearemanyfieldscallingoutforempiricalresearchandthisisimportantforreasonsofpolicy,forreformandfordeeperunderstandingofthelawandlegalprocessesinaction.’Interestingly,theperceptionofcapacityhaschangedsincethisinquiry,withsomenowarguingthat‘capacity’problemsarenowmorelikelytorelatetolackoffundingthantolackofresearchers.Governmentfundingforresearchinadministrativejusticehaslongbeenanissue,andLawintheRealWorldnotedthedisparitybetweenHomeOfficefundingforcriminaljusticeresearchandfundingforciviljusticeresearch.Thereasonsforthisaresystemicandreflectissuesthatapplytociviljusticemorewidelybutareparticularlyrelevantforadministrativejustice,includingitsrelativelylowpoliticalprofile,itslackofcoherenceasa‘system’,thediffuserangeofbodiesconcernedandconstraintsonpublic-sectorbudgets.



1.2Theroadtravelledsofar

Itishelpfultolookbrieflyatsomeoftheresearchundertakeninthepastfewyears.Whilethisoverviewisnotcomprehensive,itdoesgiveanindicationoftherangeanddiversityofrecentresearchinthefield.Italsoassistsidentificationofsomeofthechallengesthatweconsiderlaterinthepaper.Wewelcomeinformationaboutotherresearchprojectsnotincluded.Disputesystemdesignisemergingasanareaofresearchfocusthatunderpinscomparativeanalysisacrossapproachesandsystems.WorkinthisareahasincludedthatbythePublicLawProject(PLP)andQueenMaryUniversityLondon,whichconsideredthedesignofredressmechanismsthatnotonlyhandlecitizengrievancesbutenablethequalityofpublicbodies’decision-makingtobemonitored.13Thestudyproducedvaluablerecommendationssettingoutkeyprinciplesfordesigningredress.SystemdesignwasalsothefocusofastudyofconsumerADRmechanismscarriedoutbyQueenMargaretUniversity,whichproduceda‘designtoolkit’basedonempiricalresearch.14ComparativestudieswithintheUK,includingresearchintothedevolvedtribunalsoperatinginScotlandandWales,aregrowinginimportanceaspracticeacrossthedifferentUKjurisdictionsdiverges.RecentworkhasmappedadministrativejusticeinNorthernIreland,ScotlandandWales,15althoughnoequivalentmappingprojecthasbeenundertakenforEnglandorUK-wide.Eachoftheseprojectsreflectsdifferentmappingmethodologiesandapproaches.Thesevaluableresourceswillloserelevancewithoutcommitmenttokeepthemuptodate.OtherrecentcomparativeresearchincludesCreutzfeldt’sworkontrustandlegitimacyofombudsintheEU.16AstudyofasylumadjudicationinEuropeisanexampleofcomparativeworkthatexploresoverlappingthemesoftribunaldecision-making,fairnessandconsistency.17Drummond’sworkonspecialeducationalneedstribunaldecision-makingisanotherexampleofcomparativework,studyingaccessibilityoftribunalsinNorthernIrelandandWales.18Collectionof,andaccessto,dataonthedifferentformsofdisputeresolutionfurthersunderstandingandenablescomparisonstobemade.Thereisincreasingrecognition,however,thatlackofconsistentdatahamperscomparisonsandevaluation.Areportcommissionedby

13Bondy,VandLeSueur,A(2012),‘DesigningRedress:astudyaboutgrievancesagainstpublicbodies’,ibid.14Gill,C;Williams,J;Brennan,C;andHirst,C(2014),‘ModelsofAlternativeDisputeResolution(ADR)’,QueenMargaretUniversityandtheLegalOmbudsman,availableathttp://www.legalombudsman.org.uk/downloads/documents/research/Models-Alternative-Dispute-Resolution-Report-141031.pdf15Anderson,M,McIlroy,A,andMcAleer,M(2014),‘MappingtheadministrativejusticelandscapeinNorthernIreland:ReportonresearchundertakenontheAdministrativeJusticeSysteminNorthernIreland’;Morrison,A(2015),‘MappingadministrativejusticeinScotland’;Nason,S(2015),‘UnderstandingAdministrativeJusticeinWales’;linkstoallmappingreportsavailableathttps://ukaji.org/what-is-administrative-justice/16Creutzfeldt,N(2016),‘TrustingtheMiddleman’,https://www.law.ox.ac.uk/trusting-middle-man-impact-and-legitimacy-ombudsmen-europe17Gill,NandBurridge,A(2016),‘FairandConsistent?Areasylumappealhearingsthesamewherevertheyareheard?’,https://administrativejusticeblog.files.wordpress.com/2016/10/oct-2016-gill-and-burridge.pdf18Drummond,O(2016),‘Whenthelawisnotenough:guaranteeingachild'srighttoparticipateatSENtribunals’,Ed.Law2016,17(3),149-163;Drummond,O(2016),‘Potentialbarrierstothenewchild'srighttoappealtoSpecialEducationalNeedsandDisabilitytribunalsinNorthernIreland’,N.I.L.Q.2016,67(4),473-490;seealsohttps://administrativejusticeblog.files.wordpress.com/2016/10/oct-2016-orla-drummond.pdf



CitizensAdvice19andcarriedoutbyQueenMargaretUniversityandWestminsterUniversitynotedthatintheconsumersectortheimplementationoftheADRDirectivehasencouragedalevelofcompetitionthatmakesitdifficulttoextractdataacrossthoseprovidersapprovedbyregulatorstodelivercomplainthandlingandresolution.Ascopingstudyofombudsandothercomplainthandlersalsoidentifiedalackofconsistencyinrecording,reportingandterminology.20Users,andpotentialusers,areakeyconcern.Largelybecauseofthedifficultyofidentifyingandreachingthosewhodonotaccessthesystem,researchtendstoconcentrateontheverysmallpercentageofthepopulationthatmakesuseoftribunals,complaintsprocedures,judicialreviewandombuds,andnotonthevastmajorityofthepopulationwhodonotchallengedecisionswhentheymaygainbydoingso.Researchonusersincludesastudyofusers’journeysacrossthejusticesystemscommissionedbyHMCTS;21GillandCreutzfeldt’sworkonlegalconsciousnessandonlinecriticsofombuds;22andMcKeever’sworkonlitigantsinperson.23TheexperienceoflitigantsinpersonhasgrowninimportanceinlightofLASPOandreductionsinlegalaid,andthishasbeenthesubjectofrecentresearch,includinganevaluationoftheMandatoryTelephoneGateway24andthe2014-15LegalProblemsandResolutionSurvey.25Emergingworkconcernsthelinguisticchallengesoflitigantsinperson26andmakesinnovativeuseoforalhistorytechniquestoexploretheexperiencesofunrepresentedcourtusers.27Researchissuesarisinginrelationtotheworkofombudsincludetheneedforgreaterharmonisationoftheirwork;theirrelationshiptootherdisputeresolutionandredressmechanisms,andinparticulartribunalsandtheAdministrativeCourt;andcomparativeworkoncost-effectivenessandusers’experiences.TheimplementationoftheEUADRDirectivehasalsohighlightedthepotentialdividebetweenpublic-andprivate-serviceprovidersandthefluiditybetweenthese,aswellasthediverserangeofpracticesandstandardsamongombudsand

19GillCetal(2017),‘Confusion,gapsandoverlaps’,CitizensAdvice,https://www.citizensadvice.org.uk/about-us/policy/policy-research-topics/consumer-policy-research/consumer-policy-research/confusion-gaps-and-overlaps/20Doyle,M,Bondy,V,Hirst,C(2014),‘TheuseofinformalresolutionapproachesbyombudsmenintheUKandIreland:Amappingstudy’,https://ombudsmanresearch.files.wordpress.com/2014/10/the-use-of-informal-resolution-approaches-by-ombudsmen-in-the-uk-and-ireland-a-mapping-study-1.pdf21SeepresentationbyLucAltmannathttps://ukaji.org/2017/02/15/researching-users-perspectives-report-from-a-ukaji-workshop/22Gill,CandCreutzfeldt,N(2016),‘Onlinecriticsoftheombudsman’,https://www.law.ox.ac.uk/research-and-subject-groups/online-critics-ombudsmen23McKeever,G(2017),‘TheimpactoflitigantsinpersonontheNorthernIrelandCourtSystem’,currentresearchhttp://www.nuffieldfoundation.org/impact-litigants-person-northern-ireland-court-system24Hickman,BandOldfield,D(2015),‘KeystotheGateway:AnIndependentReviewoftheMandatoryCivilLegalAdviceGateway’,PublicLawProject,availableat:http://www.publiclawproject.org.uk/resources/199/an-independent-review-of-the-mandatory-civil-legal-advice-gateway25Franklyn,Retal(2017),‘FindingsfromtheLegalProblemandResolutionSurvey,2014–15’,MinistryofJusticeAnalyticalSeries,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/596490/legal-problem-resolution-survey-2014-to-2015-findings.pdf26Tkacukova,T(2017),‘BarriersinAccesstoJusticeforLitigantsinPerson:Communicative,Conceptual,CognitiveandProceduralChallenges’,SLSA2017Conferenceandhttps://administrativejusticeblog.files.wordpress.com/2016/10/oct-2016-tatiana-tkacukova.pdf27Leader,K(2017),‘FifteenStories:LitigantsinPersonintheCivilJusticesystem’,SLSA2017Conference.



complaint-handlingschemes.Acurrentdraftbill28toreformthepublicservicesombudslandscapeinEnglandpresentsanumberofquestionsabouttheroleoftheombudinstitutioninrelationtoadministrations.Researchhasexploredtheuseofinformalresolutiontechniquesbyombuds;29therangeofmodelsofhighereducationombudschemes;30theevolutionoftheombudinstitutionusingtheLegalServicesOmbudsmanasacasestudy;31andactionresearchfocusedontheworkofinvestigatorsintheofficesoftheScottish,IrishandEnglishInformationCommissioners.32Inrelationtotribunals,theMinistryofJusticemadeacommitmenttoscope,developandimplementclear,evidence-basedtribunalfundingandfeemodels(includingincentivesfordecision-makerstogetit‘rightfirsttime’).33Yetnopilothasbeencarriedoutontheeffectsofasanctionsschemefordepartmentswhosedecisionsareoverturnedonappeal(sometimesreferredtoas‘polluterpays’),asuggestionmadebytheAJTCandothers.Inaddition,therehavebeennoindependentlyevaluatedpilotsontheuseofalternativedisputeresolutionmethodsbytribunalsalongthelinesofthosecommissionedin2010,onearlyneutralevaluationandjudicialmediation.34AreviewofnewdisagreementresolutionarrangementsforspecialeducationalneedsanddisabilitydisputesinEngland35assessedthevalueandcostsofmediationinrelationtotribunalappealsandevaluatedapilotextendingthepowersofthetribunal.Itistobeexpectedthatuserswillfindithardertonavigatetheadministrativejusticesystemascutsinlegalaidandadviceservicesmakeaccesstosupportandadviceincreasinglydifficult.Suchdifficultiesaffectbothusersandthosewhoworkwithinadministrativejustice,suchastribunalstaffandfront-linecomplaintshandlers.Legalneedssurveysarecostlyandtimeconsumingandhavetobecarriedoutregularlytounderstandchangeovertime.AsdiscussedbyCoxon’sreport36onaseminarjointlyhostedbytheOpenSocietyJusticeInitiative(OSJI)andtheOrganisationofEconomicCo-OperationandDevelopment(OECD)toexamineaccessto

28DraftPublicServicesOmbudsmanBill(2016),https://www.gov.uk/government/publications/draft-public-service-ombudsman-bill;seealsoMcBurnie,G(2017),https://ukaji.org/2017/01/12/the-draft-public-service-ombudsman-bill-what-recommendations-are-being-taken-forward/29Doyle,M,Bondy,V,Hirst,C(2014),‘TheuseofinformalresolutionapproachesbyombudsmenintheUKandIreland:Amappingstudy’,https://ombudsmanresearch.files.wordpress.com/2014/10/the-use-of-informal-resolution-approaches-by-ombudsmen-in-the-uk-and-ireland-a-mapping-study-1.pdf30Behrens,R(2017),‘BeinganOmbudsmaninHigherEducation’,ENOHE,https://ukaji.org/2017/06/26/new-comparative-research-being-an-ombudsman-in-higher-education/31O’Brien,NandSeneviratne,M(2017),OmbudsmenattheCrossroads.TheLegalServicesOmbudsman,DisputeResolutionandDemocraticAccountability,PalgraveMacmillan,London,2017.32Dunion,KandRojas,H(2015),‘AlternativeSystemsofDisputeResolutionandtheRighttoFreedomofInformation’,Transparencia&Sociedad,No.3,pp.69-91.33MinistryofJustice(2012),‘AdministrativeJusticeandTribunals:AStrategicWorkProgramme2013–16’,p.16,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217315/admin-justice-tribs-strategic-work-programme.pdf34Urwin,P,etal(2010),‘EvaluatingtheuseofjudicialmediationinEmploymentTribunals’,MinistryofJusticeResearchSeries7/10;andHay,C,McKenna,KandBuck,T(2010),‘EvaluationofEarlyNeutralEvaluationAlternativeDisputeResolutionintheSocialSecurityandChildSupportTribunal’,MinistryofJusticeResearchSeries2/10,London:MinistryofJustice.35Cullen,MAetal(2017),‘SEND:Reviewofarrangementsfordisputeresolution’,DepartmentforEducation/UniversityofWarwick,https://www.gov.uk/government/publications/send-disagreement-resolution-arrangements-in-england-review36Coxon,C(2017),‘Internationalworkshoponmeasuringeffectiveaccesstojustice–anoverview’,availableathttps://ukaji.org/2017/01/16/international-workshop-on-measuring-effective-access-to-justice-an-overview/



justice,thefundingconstraintsmakeitimpossibleformanygovernmentstocommissionsuchsurveys.TheLegalActionGrouphasalsonotedthatofficialstatisticshelpinidentifyingthosewhousetribunalsandotherpartsoftheadministrativejusticesystembuttellusnothingaboutthosewhodonotchallengedecisions,becauseoflackoflegaladvice,forexample.37Partnershipworkingandcollaborationacrossgovernmentsanddisciplineswouldhelptogeneratealternatives,suchas‘piggybacking’ongeneralpopulationsurveysonhousing,employment,education,health;andbettercollectionandsharingofadministrativedata.InNovember2016theBachCommissionpublishedaninterimreportidentifyingkeyproblemswithaccessingjustice.38TheCommissionproposedanumberofreformswhich,iftakenforward,wouldhelptoaddressthecrisisinaccessingadvicethroughsimplifyingthelegalsystem,usingnewtechnologies,focusingonthejourneyoftheuserthroughthesystemandpossiblyreversingcutstolegalaid.

Inthisarea,theLegalProblemsandResolutionSurvey2014-15(LPRS)39consideredtheroutestoresolutiontakenbyindividualsinEnglandandWales.ThereportpresentsthekeyfindingsfromtheLPRS,focusingonhowpeopleexperiencelegalproblemsandtheresolutionstrategiesadopted,includingtheadviceobtainedtohelpthemresolvetheirproblemsandthereasonswhypeopletooknoaction.ThesurveyisthelatestinaprogrammeofempiricalresearchonlegalneedsinEnglandandWalesthatstartedwithGenn’spioneeringPathstoJusticeSurveyin1999.A‘PathstoJustice’studyonlegalneedsinScotlandwasconductedbyGennandPatersonin2001,butequivalentstudieshavenotbeencarriedoutonusers(andnon-users)inNorthernIrelandandWalesasdistinctjurisdictions.

Inordertodesigneffectivesystemsofredress,itisimportanttounderstandinitialdecision-making.Thisisanareaofincreasingimportance,asseenbytheNationalAuditOffice’scondemnationofHMRC’shandlingoftheConcentrixcontractfortaxcreditsandtheongoingconcernsaboutdecision-makingbyDWP’sassessmentprovidersATOSandCapita.40ResearchontheDWP’sprocessofMandatoryReconsideration(MR),introducedin2013,hashighlightedtheimportanceofresearchtoidentifyfailingsinanewpolicyandprocedureand,moreimportantly,opportunitiestoputtheseright.TheSocialSecurityAdvisoryCommittee(SSAC),41forexample,attemptedtoidentifythecostsoferrorintheprocess.ItfoundthatprocessingMRrequestsandpreparingfortribunalsinESAcasescoststheDWPmorethan£300millionperyear,andestimatedcoststothetribunalaremorethan£240million(arrivedatbydividingthecostoftheSocialSecurityandChildSupportTribunalbythenumberofcases,2013/14).TheSSACnotestheneedtoaddthecostsofcomplaintstotheParliamentaryandHealthService37LegalActionGroup,http://www.lag.org.uk/magazine/2013/11/paths-to-justice.aspx38BachCommissiononAccesstoJustice(2016),‘ThecrisisinthejusticesysteminEngland&Wales’,interimreport,http://www.fabians.org.uk/wp-content/uploads/2016/11/Access-to-Justice_final_web.pdf39Franklyn,Retal(2017),‘FindingsfromtheLegalProblemandResolutionSurvey,2014–15’,MinistryofJusticeAnalyticalSeries,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/596490/legal-problem-resolution-survey-2014-to-2015-findings.pdf40See,e.g.,Thomas,R(2016),‘Asorryepisodeforthewelfarestate’,https://ukaji.org/2016/12/13/a-sorry-episode-for-the-welfare-state-concentrix-and-mandatory-reconsiderations/and‘Taxcredits,Concentrixandprivatisedadministrativejustice’,https://ukaji.org/2016/09/15/tax-credits-concentrix-and-privatised-administrative-justice/41SSAC(2016),‘Decisionmakingandmandatoryreconsideration’,https://www.gov.uk/government/publications/ssac-occasional-paper-18-decision-making-and-mandatory-reconsideration



OmbudsmanandtheIndependentCaseExaminer(bothofwhichcanconsideraspectsofserviceprovidedbytheDWP),andthecoststoothergovernmentdepartments,localauthorities,anddevolvedadministrationsthrough,forexample,discretionarypayments.Thecostsgowider,however.Lossoftrustinpublicbodiesandtheirabilitytobefaircanleadtomore,andmorecomplexandtime-consumingchallengestodecisions,puttingadditionalburdensoninitialdecision-makers.Moreworrying,thecoststoclaimantscanmeanincreasedpersonaldebtwhileawaitingdecisions,build-upofarrears,illhealthandstress.Researchershaveexaminedmandatoryreconsiderationbylocalauthoritiesinhomelessnesscases.Theyhaveconcludedthattherelationbetweenmandatoryreconsiderationandadministrativejusticemustbeinvestigated‘contextbycontext,eschewingstraightforwardconclusions,payingattention,bothempiricallyandtheoretically,totherelationshipsbetweenreconsiderationpractices,theinterestsofindividualapplicantswhofeelmistakeshavebeenmade,thequalityofongoingroutineadministration,andtheadministrationoftheredresssystemitself.’42

Learningfrommistakes,andusingthatlearningtoimproveinitialdecision-making,hasbeenakeyconcernofoversightbodies,yetresearchonthishasbeenscarce.FollowingtheSSAC’sresearchonmandatoryreconsideration,theDWP43agreedtotakeforwardactionsincludinghavingmorePresentingOfficersattendappealhearingsinordertoensurefeedbackfromthetribunalistakenonboard.Otherrecommendationstoimprovetheuseoffeedbackwererejected,however,suchaspublishingtheDWP’sannualreporttothePresidentoftheSocialEntitlementChambertoimproveunderstandingofhowfeedbackisbeingusedandwhatimprovementsareimplemented.

Inimmigrationandsocialsecurityappeals,bothofwhicharehighvolume,researchershavenotedthedifficultiesinprovidingtimelyfeedbacktotheappropriateindividualswithintheagencyandprovidingconsistentfeedbackacrosstribunals.44Thomashasexploredtheimportanceofimprovinginitialdecision-makingandtheneedfordepartmentstoengageinorganisationallearning,i.e.‘consciouslyassumingresponsibilitytoraisedecision-makingstandards,tounderstandthecausesofpoordecisions,andtoimprove’.45This,heargues,requiresbettertrainingforcaseworkers,re-designingprocedurestoensurethatrelevantevidenceiscollected,andqualityassurancesystems’.Hepointsinparticulartotheneedfordepartmentstomakebetteruseofdataonthenatureandqualityofdecision-making,includingfeedbackfromtribunals.Atheart,heargues,thisrequiresthedevelopmentofculturesandstructuresthatvaluesuchlearning.Ondigitalisation,researchhasbeenrelativelyscarce,especiallyconsideringthesignificant

42Cowan,Detal,(2017)‘ReconsideringMandatoryReconsideration’,[2017]PublicLaw215-234,234.43‘Governmentresponse:SSACreportondecisionmakingandmandatoryreconsideration’(January2017),https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/604139/detailed-response-from-the-government-to-the-ssac-mandatory-reconsideration-report.pdf44Thomas,RandTomlinson,J(2016),‘CurrentIssuesinAdministrativeJustice:Examiningadministrativereview,betterinitialdecisions,andtribunalreform’,https://drive.google.com/file/d/0B9hEf7Oxz59QR2toVWEwQkhVcEk/view45Thomas,R,(2015),‘AdministrativeJustice,BetterDecisions,andOrganisationalLearning’[2015]PublicLaw111-131.SeealsoThomas,RandTomlinson,J(2016),‘CurrentIssuesinAdministrativeJustice:Examiningadministrativereview,betterinitialdecisions,andtribunalreform’,ibid.



impactofthereformprogramme.46LordJusticeBriggs,intheinterimreportonhisCivilJusticeStructureReview47,carriedoutaSWOTanalysisofthereformprogramme,notingthatonethreatisthe‘widespreadscepticismabouttheabilityofanygovernmentorganisationtoconductlargescaleITprocurementexercisescostinghundredsofmillionsofpoundswitharealprospectofultimatesuccess’.BriggsenvisionstheconceptofanOnlineCourtasaddressingaccesstojusticeissuesbymakingthecourtsaccessibletolitigantswithoutrequiringlawyers.Thisfocusonprocessisanongoingtheme,reflectedinthe‘AssistedDigital’solutions(e.g.telephonehelplinesandonlinechatservices)toassistlitigantschallengedbytheonlineprocesses.Briggsandothers48havearguedthatdigitalisationcanpotentiallydelivergreatertransparency.Suchanaimischallengedbylackofopennessabouttrialsandpilots.AnexampleofmissedopportunitiesistheComplaintsPortalPilotrunbytheCabinetOfficewiththeDWPandLandRegistry.Thepurposeofthepilotwastoexplorethevalueofadigitalcomplaintschannel,partofawideragendatomoveto'digitalbydefault'.Themainpolicyobjectivewastoreconcileauser-centredapproachwiththeneedtocaptureandanalysesuitablefeedbacktobeusedforserviceimprovements.Foranumberofreasonsthepilothadnotmettheneedsofthedepartment:fundinghadnotbeenavailabletobuildthe‘portal’sothatitintegratedwiththedepartment’sownCustomerRelationshipManagementsystem.Furthermore,therewasnocommitmenttoevaluatingandreportingonthepilot,anditwasonlythroughdiscussionattheAdministrativeJusticeForumthatitwasagreedthatareportwouldbeinthepublicinterest.49CitizensAdvicehasrecentlyreportedonthemanychallengesfacingtheroll-outofUniversalCredit(UC).50UCreplacessixmeans-testedbenefitsandtaxcreditswithasinglebenefit,anditsimplementationisbeingrolledoutinphases–thefirstalimited‘liveservice’andtheother,introducedinMay2016,a‘fullservice’.TheCitizensAdvicemonitoringsurveyidentifiedthat45%ofclaimantsintheareastargetedfor‘fullservice’roll-outofUC(i.e.whereclaimsarebothmadeandmanagedonline)haddifficultyaccessingorusingtheinternet,orboth.Thereportnotesthatalthoughadigitallydeliveredbenefitservicehasmanypotentialadvantagesforclaimants,italsorequiressignificantsupport.

46SeeMinistryofJustice(2016),‘TransformingOurJusticeSystem’,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/553261/joint-vision-statement.pdf47LordJusticeBriggs(2015),‘CivilCourtsStructureReview:InterimReport’,https://www.judiciary.gov.uk/wp-content/uploads/2016/01/CCSR-interim-report-dec-15-final-31.pdf48SeeSmith,R(2017),‘OnlineCourts:unintendedconsequences;unintendedtransparency?’,https://law-tech-a2j.org/odr/online-courts-the-unintended-consequences/49AdministrativeJusticeForum,MeetingminutesNovember2015https://www.gov.uk/government/groups/administrative-justice-advisory-group.MinutesoftheMarch2017meetingareyettobepublished.50Foley,B(2017),‘DeliveringonUniversalCredit’,CitizensAdvice,https://www.citizensadvice.org.uk/Global/CitizensAdvice/welfare%20publications/Delivering%20on%20Universal%20Credit%20-%20report.pdf;seealsocommentarybySmith,R(2017),‘OnlineBenefitstoOnlineCourts:‘Theremaybetroubleahead’,https://law-tech-a2j.org/odr/online-benefits-to-online-courts-there-may-be-trouble-ahead/



2.1Thechangingcontext

Eventsin2017,notleastthewide-rangingimplicationsofBrexit,highlightthefast-changingcontextwithinwhichadministrativejusticeissuesarise.Anotherexamplefromthecurrentyear,theGrenfellTowerfire,wasatragicincidentwithhugerepercussionsforitsresidentsandsurroundingneighbourhoodandalsoanillustrationoftheinterconnectednatureofadministrativejustice.Althoughitisnotyetknownwhetheritwasaconsequenceofdecisionstakenundertheausterityagenda,51thefireshowsthereal-worldimpactofcomplexissuesofaccountability,trust,complaintshandling,theroleoftheStateinensuringpeople’swelfareandsafety,cutstolocalauthoritybudgets,de-regulation,andpublicservicedecision-makingintimesoffinancialconstraints.Thedecisiontocarryoutapublicinquiryintothefire,itscausesandthewidercontext,andthedesignofthatinquiry,arealsoadministrativejusticematters.TherecentSupremeCourtruling52intheUNISONchallengeoftribunalfeescriticised‘theassumptionthattheadministrationofjusticeismerelyapublicservicelikeanyother,thatcourtsandtribunalsareprovidersofservicestothe“users”whoappearbeforethem,andthat

theprovisionofthoseservicesisofvalueonlytotheusersthemselvesandtothosewhoareremuneratedfortheirparticipationintheproceedings’.Thisruling’ssignificancegoesbeyondtheimpactitwillhaveonthelevelsoffeestoaccessemploymenttribunals;italsorecognisesthevalueofcourtsandtribunalswithinthedemocraticframeworkandtheruleoflaw.Inthispartofthepaperwesummarisewhatweseeastheprimarycontextualfactorsthatimpingeonresearchprioritiesandplanning,settingouttheeffectsofseveralcontextualandsystemicpressurepoints.

EffectsofausterityFirst,itisworthstressingthatmanyoftheissuesidentifiedbypreviousagenda-settingworkremainimportant,notleastduetothecontinuingimpactoftheausterityagendaonmatterssuchaslegaladvice;people’sneedforsupport;pressurestoincreasetheefficiencyofsystems;andthegeneralpressuresonpublicbodieswhich,forexample,reduceresourcesavailableto51SeePrimeMinisterQuestions,28June2017,http://www.parliament.uk/business/news/2017/june/prime-ministers-questions-28-june-2017/52R(ontheapplicationofUNISON)(Appellant)vLordChancellor(Respondent),2017,https://www.supremecourt.uk/cases/docs/uksc-2015-0233-judgment.pdf

SECTION2–Wherewearenow



assistresearch.JUSTICEhasnotedthatthesystem‘isreelingfromtheimpactofongoingstateretrenchment’.53IthasbeensuggestedthattheabolitionoftheAJTCcanberegardedasaconsequenceofausteritypoliticsas,althoughtheGovernmentstatedthatitsprincipalobjectiveincuttingthenumberofquangoswastoimprovedemocraticaccountability,italsoemphasisedthebenefitsofreducingpublicexpenditure.54EffectsofjusticereformsandnewtechnologiesThejusticesystemgenerallyisundergoingtransformationtowarddigitalisation,includingvirtualhearingsandonlineappeals.Thejudiciaryhasdescribedthesix-yearcourtsandtribunalsreformprogramme55asthemostambitiousreformsincethe1870s–a£1billioninvestmentprojectaimedatbringingfar-reachingefficienciesandimprovedaccess.56Theintentionisnotmerelytoreplicateofflineprocessesbuttodevelopanewintegratedapproachthatwillbringefficienciesintheadministrationofjustice.Arelatedbutlessheraldedchangeistheincreaseduseofautomateddecision-makinginaspectsofeverydaylife.IthasbeennotedthattheUKgovernment’stargetofmakingeveryinteractionithaswithcitizensdigitalby2020‘isnosmalltaskandonethatwillrequireeverydepartmenttotakeonresponsibilityfordeliveringthetechnologythatwillfacilitatethischange.’57Thisambitionraisessignificantimplicationsforourunderstandingofinitialdecision-makingandinternalreviewand,intermsofresearch,thepotentialfordataonhowtheseprocessesoperate.Workisneededonthebenefitsandtherisksposedbyautomateddecision-makingfromanadministrativejusticeperspective–forexample,toidentifyadverseconsequencessuchasdiscriminatoryimplications,58errorsandbiasinthewaythealgorithmswork,andhowmucherrorindecision-makingistolerable:person-madedecisionsinevitablyinvolvehumanerror,arguablymorethandecisionsbyalgorithm.Anemergingchallengeforredressmechanisms(ombudsandregulators,tribunalsandjudicialreview)iswhethertheyareappropriate(andappropriatelyresourced)forhandlingchallengesgeneratedbyautomateddecision-making.59Thecurrentprogrammeofcourtreformraisessignificantresearchneedsandopportunities,includingthosearoundtheuserexperience,digitalisationandonlinedisputeresolution(ODR).6053JUSTICE(2015),‘DeliveringJusticeinanAgeofAusterity’,https://2bquk8cdew6192tsu41lay8t-wpengine.netdna-ssl.com/wp-content/uploads/2015/04/JUSTICE-working-party-report-Delivering-Justice-in-an-Age-of-Austerity.pdf54Mullen,T(2016),‘AccesstoJusticeinAdministrativeLawandAdministrativeJustice’,inPalmer,Eetal(2016),AccesstoJustice:BeyondthePoliciesandPoliticsofAusterity,HartPublishing.55‘TransformingourJusticesystem’,September2016,https://www.judiciary.gov.uk/wp-content/uploads/2016/09/narrative.pdf56See,e.g.,SirErnestRyder,SeniorPresidentofTribunals,PublicLawProjectConferencespeech,October2016,http://www.publiclawproject.org.uk/data/resources/238/PLP-Speech-12-10-16-Final.pdf;SirTerenceEtherton,MasteroftheRolls,LordSlynnMemorialLecture,June2017,https://www.judiciary.gov.uk/wp-content/uploads/2017/06/slynn-lecture-mr-civil-court-of-the-future-20170615.pdf57GuyKirkwood,‘TheGovernment’sBigOpportunity’,22March2017,http://www.reform.uk/reformer/the-governments-big-opportunity/58Seee.g.workoftheHumanRightsBigDateandNewTechnologiesProjectbasedatEssex:https://www.hrbdt.ac.uk/59See,e.g.,https://www.theguardian.com/technology/2017/jan/27/ai-artificial-intelligence-watchdog-needed-to-prevent-discriminatory-automated-decisions?CMP=share_btn_tw60Civil JusticeCouncil,OnlineDisputeResolution for LowValueCivilClaims,February2015;Civil JusticeCouncil,FourthNationalForumonAccesstoJusticeforLitigantsinPerson,Summary,4December2015;DigitalDirectorforHMCourts&TribunalsService,Modernisationofjusticethroughtechnologyandinnovation,21June2016;Ministry



Ourworkwithstakeholdersillustratesthatthoseinvolvedinthereformprogrammerecognisethevalueofrobust,empiricallybasedresearchtohelpinformtheprocessofreformandtotestitseffectiveness.Insomejurisdictionsnewtechnologiesarebeingusedtoimproveaccesstojustice,e.g.theonlinecivilresolutiontribunalinBritishColumbia,61theRechtwijzerintheNetherlandsinaprojectondivorce,62andinAustraliainanattempttousemachinelearningtoenablepeopletoaccesstailoredlegaladviceviaanavatar.63Creativeapproachessuchas‘designedthinking’andonlinetoolshavethepotentialtoaddressthe‘qualityvsquantity’dilemmathatisanongoingquandaryforadministrativejustice.RogerSmithhasexploredthereasonswhytheRechtwijzerfacesobstacles,notingtheproblemsofcostandcapacity:‘Thedemandforbetterproceduresfromcitizensishuge.Butthegovernmentinstitutionstowhichweentrustadjudicationandlegalaiddonothaveprocessesforimplementingandscalingupinnovation.’64Overcomingscepticismandsuspicionarealsochallenges,butcarefullyconductedresearchonnewtechnologiesshouldhelpidentifytowhatextentsuspicioncanbealleviatedbyevidenceandbynewapproachestogovernance.65Withoutacommitmenttofundandevaluatepilotsindigitalapproaches,thereislikelytobecontinuedscepticismaboutthegovernment’sabilitytodeliveronitspromisesunderthe‘digitalbydefault’agenda.EffectsofdevolutionCourtandtribunalreformsmayhaveledtogreatercoherenceinthesystemespeciallyinrelationtoappeals;however,inmanywaystheadministrativesystemasawholeisbecomingincreasinglydiverseandfragmented.Anobviousexampleisinrelationtotheabilityofdevolvedadministrationstotakedifferentapproacheswithdevolvedpowers.Smallerjurisdictionsfaceparticularchallengesbutalsoembraceparticularopportunities.InNorthernIreland,forexample,tribunalreformhasstalled;tribunaloperationstillsitswithinsponsoringdepartments,butadministrativecontrolrestswiththeDepartmentofJustice.Resourcestendtobefocusedondeliveryofnewoperationalsystemsratherthanreform.Butdevolutionisaconstantlychangingprocess,notasinglemomentintime,anditoffersuniqueopportunitiestodevelopdistinctiveinitiatives.InWales,forexample,newlegislation

of Justice, Transforming Our Justice System, September 2016; Lord Justice Briggs,Civil Courts Structure Review:FinalReport,July2016.61https://www.scl.org/articles/3784-the-online-justice-experience-in-british-columbia62http://www.hiil.org/project/?itemID=2641;seealsoBindman,D(2017),http://www.legalfutures.co.uk/latest-news/pioneering-odr-platform-to-rein-in-ambitions-after-commercial-setback63See,e.g.,http://www.abc.net.au/am/content/2016/s4495245.htmandhttp://law-tech-a2j.org/funding/cate-blanchett-voices-ground-breaking-advice-avatar/(AustralianavatarprojectforLiPs).However,thewithdrawalofaprivate-sectorpartnerintheDutchinitiativehasputthefutureoftheinnovativedigitalprojectatrisk;seeRogerSmithathttp://law-tech-a2j.org/advice/goodbye-rechtwijzer-hello-justice42/64See,e.g.,https://law-tech-a2j.org/odr/rechtwijzer-why-online-supported-dispute-resolution-is-hard-to-implement/?utm_content=buffer18b43&utm_medium=social&utm_source=twitter.com&utm_campaign=buffer65DataManagementandUse:Governanceinthe21stCentury,JointReportoftheRoyalSociety/BritishAcademy:https://royalsociety.org/~/media/policy/projects/data-governance/data-management-governance.pdf



willintroduceareservedpowersmodelofdevolutiontoWales.66Considerationisbeinggiventohowtomaketribunalsmoreinvestigative,andthejurisdictionofspecialeducationalneedsandschoolexclusionsisbeingmergedunderonetribunal.Thedevolutionofsocialsecuritypowersalsohighlightsactualorpotential‘pointsofdivergence’67fromtheWestminsterapproachinadministeringsocialsecurityinScotlandandNorthernIreland.AnexampleisthecommitmentoftheScottishGovernmenttoensuringthatrespectforthedignityofindividualswillbeattheheartofhowitadministersdevolvedsocialsecuritybenefits.68Thisraisesquestionsaroundhowdecisionsonbenefitsreflectthedutytoconsidertheimpactoftheprocessonthedignityofthepersonreceivingthebenefit,andwhatimpactembeddingtheseprincipleswillhaveontheoutcome?TheEqualityandHumanRightsCommissionhascommissionedresearchtogiveclearmeaningtotheterms‘dignity’and‘respect’inthecontextofsocialsecurityandtoinformtheapproachtakenbytheScottishGovernment.69OtherworkinthisareaincludesthatbyAdleronassessingthepolicyofbenefitsanctionsagainsttheprinciplesoftheruleoflaw70andthedevelopmentofguidanceforombudscaseworkerstohelpthemidentifyhumanrightsissuesarisingincomplaints.71Astheaboveexamplesindicate,theseshiftsofferopportunitiesforresearchersandthoseinterestedinlearningfromcomparativeworkandtheexperienceofothers.Theymayalsoincreaseopportunitiestogainaccesstodataandinstitutionsgiventhatlocalgovernmentandthedevolvedgovernmentshaveonoccasionsbeenmoreamenabletoprovidingaccessandsupportforresearchthansomecentralgovernmentdepartments.EffectsofprivatisationTheincreasinglyporousdividebetweenpublicandprivateposesanumberofquestionsaboutaccountabilityandtransparency.Therearealsoconcernsaboutvalueformoneyandultimatelytheimpactonthosewhoaresubjectedtoprivatiseddecision-making.TheConcentrixdebacleisasoberingexampleofwhattheWorkandPensionsSelectCommitteedescribedas‘asorryepisodeforthewelfarestate’.72TheCommittee’sreportintotheHMRC’shandlingofitsoutsourcingcontractcriticisedbothConcentrix’sdecision-makingandHMRC’soversight.Thereportstatedthat‘vulnerablepeoplelostbenefitstowhichtheywereentitledthroughnofaultoftheirown.Somehavebeenputthroughtraumaticexperiencesasaconsequenceofavoidable

66WalesAct2017,http://www.legislation.gov.uk/ukpga/2017/4/contents/enacted.SeealsoPritchard,H(2017),‘TribunalreforminWalesundertheWalesAct2017’,https://ukaji.org/2017/07/20/tribunal-reform-in-wales-under-the-wales-act-2017/67Simpson,M(2016),‘Thesocialunionafterthecoalition:devolution,divergenceandconvergence’,http://uir.ulster.ac.uk/35236/1/JSP%20WR%20devo%20OA.pdf68Seehttps://consult.scotland.gov.uk/social-security/social-security-in-scotland/69https://ukaji.org/2017/01/17/social-security-systems-based-on-dignity-and-respect-invitation-to-tender/70See,e.g.,Adler,M(2015),‘BenefitSanctionsandtheRuleofLaw‘,https://ukaji.org/2015/10/14/benefit-sanctions-and-the-rule-of-law/71NorthernIrelandEqualityandHumanRightsCommissionandNorthernIrelandPublicServicesOmbudsman(2016),HumanRightsManual,launchedataninternationalconferenceinBelfastinMay2016:https://nipso.org.uk/nipso/nipso-latest-news/941/72SeeWorkandPensionsSelectCommitteeinquiryreport,http://www.parliament.uk/business/committees/committees-a-z/commons-select/work-and-pensions-committee/inquiries/parliament-2015/concentrix-and-tax-credits-16-17/;andseeThomas,R(2016),‘‘Asorryepisodeforthewelfarestate’:ConcentrixandMandatoryReconsiderations’,https://ukaji.org/2016/12/13/a-sorry-episode-for-the-welfare-state-concentrix-and-mandatory-reconsiderations/



failures.’73OntheprocessofrequestingareviewofanunfavourabledecisionviaMandatoryReconsideration,theCommitteestated:‘Taxcreditclaimantsseekingtoensurecontinuedeligibilityfortaxcreditswerefacedwithadecisionmakingsystemstackedagainstthem.’74EffectsoflackofoversightInthiscontext,itisimportanttostressthatsincetheabolitionoftheAJTCnosinglebodyhashadformalresponsibilityforoverseeingthevariouspartsofthesystemoritsoverallresearchneeds.TheAJTC’ssuccessorbody,theAdministrativeJusticeForum(AJF),wasnottaskedorresourcedtodeveloporprogresstheAJTC’sresearchagenda.75Oneconsequenceisthatalternativemethodsmaybeneededtoidentifyresearchneeds,especiallyinrelationtostrategicallyorgenericallyimportantmattersthatcrosssystems.Anotherchallengewillbetoensurethatadequateopportunitiesexistforresearchersandotherstakeholderstocometogether,informalandinformalnetworks,todiscussresearchprioritiesandtoenablepractitionersandpolicymakerstolearnaboutwhatisbeingdoneandwhatresearchopportunitiesexist.EffectsofdemandforimpactTurningmorespecificallytotheresearchers:universitiesmustincreasinglydemonstratethattheirresearchmatters,thatithasimpactbeyondacademia;mostfundersnowexpectthisaswell.Relatedtothisistheexpectationthatacademicsinresearch-leduniversitiesgenerateresearchincome.Theserequirementsarelikelytohavestimulatedinterestinempiricalresearchaswellasincentivesforresearcherstoworkacrossdisciplinesandalsomoredirectlywithpractitionersandpolicymakers.However,theymayalsohaveincreasedcompetitionforfundingandshiftedresourceawayfromworkthatisnotdirectedatachieving‘impact’,makingitmoredifficultforloneresearchersorearlycareerresearcherswhohaveyettoachieveatrackrecordinempiricallybasedfundedresearch.

2.2Challengesandobstacles

CapacityBasedonthewiderangeofresearchtopicsandresearchersfeaturinginUKAJI’sCurrentResearchRegister76andonourcontactswithearlycareerresearchersoverthepastthreeyears,capacity–intermsofthenumberofthoseundertakingempiricallybasedlegalworkonadministrativejustice–maybelessofaconcerntodaythanitwasatthetimeoftheNuffieldLawintheRealWorldinquiry.Nonetheless,whiletherearehealthysignsintherangeofresearchonadministrativejustice,thereisagrowingneedtoincreasecapacitytoundertakeworkthatcrossesdisciplinaryfieldsandrespondstochangingresearchneeds,includingindevelopingareasofresearch,suchastheeffectsofdigitalisation.Drawingawiderrangeof

73Ibid.74Ibid.75However,theAJFdidtakeaninterestinresearch.Forexample,itidentifiedtheSocialFund(emergencypayments)andinparticularreview,appeal,andcomplaintsmechanismsunderthenewlyadministeredlocalauthoritymanagedschemesasareasinwhichcomparativeresearchwouldbebeneficial.Itidentifiedasimportanttheneedtocompareapproachestakentoadministeringthesefundsinthedevolvednationsfollowingthechangefromacentralscheme.TheAJFalsonotedthatthechangeintheschemereflectedthechangingroleandexpectationsonlocalauthorities.76Seehttps://ukaji.org/current-research-register/



researchersintoworkrelatedtoadministrativejusticeremainsachallengeinpartbecausemanyacademicsinfieldssuchaseducation,socialpolicy,government,economicsandcomputersciencedonotidentifyasadministrativejusticeresearchersalthoughtheirworkisclearlypartofthatlandscape.77Inadditiontoimprovingfutureresearchcapacitiesthroughteachingatalllevels(includingPhDandbeyond)in‘big’areasofadministrativejustice,itmightalsobepossibletoincreasecapacitythroughinternationalcollaborationoncomparativework.Insocialsecurity,forexample,theremightbevalueinpoolingresourcesacrossjurisdictionstocreatemoreviableresourcegroups.Providingamoreexplicitinternationalfocusmayalsoincreaseresearchfundingpossibilities.Researchisnotonlybeingconductedinuniversitiesbutwithingovernmentdepartments,non-governmentalorganisations(NGOs),redressmechanisms(e.g.ombudschemes)andbypractitioners.Thesegroupsbringvaluableexpertiseandinsightsbutmaywelcomeinputonmethodologiesandawarenessofpotentialfundingsources.Thereareobviousmutualbenefitsarisingfromcollaborationbetweenuniversityresearchersandpractitioners/NGO-basedresearchers.TheformergainfromacquiringfreshperspectivesanddifferentcontactsaswellasmuchneededREFimpactpossibilities,andthelattergainexpertiseinresearchmethodologyandinnegotiatingtheresearchfundingmaze.FundingCapacityandfundingarelinked.Theroleoffundersinsettingtheresearchagenda–whichinturnprovidestheagendaforuniversitiestofollow–isanothernecessarypieceinthecapacityjigsaw.UKAJIisresearchingtheprioritiesoffunderswhooperateinareasofpotentialimportancetothefieldwithaviewtoopeningupadialogueregardingfutureresearchneeds.Undertakingempiricallybasedresearchislikelytobecostlybothintermsoftimeandfinancialresource,andsecuringadequatefundingisaconstraint,inparticularforearlycareerresearchers.Weareconcernedthatwhiletherequirementtodemonstrate‘impact’bothaspartofREFrequirementsandasakeyelementoffundingapplicationsoffersopportunitiesforsome,andmayencourageuniversitiestoprovidesupport,itisalsolikelytohaveachillingeffect.Thismaybesoespeciallyinrelationtoresearchthatdoesnothaveimmediatepolicyimplicationsorwhichgeneratesfindingsthatareunlikelytofindtheirwayintoreformprogrammesornewpractices.Currentlyadministrativejusticeresearchisfundedbyarangeoffunders.Anexaminationofthe55projectsonUKAJI’sLiveResearchProjectsregister,forexample,showsthefollowingdistribution:TheESRCfunds10oftheprojects,Nuffieldfunds9,and2areLeverhulmefunded.Theremaining34projectsarefundedbyvarious(own)universities(8),andoneeachbydiversebodiessuchastheChildren’sCommissioner,DepartmentforEducation,IntraEuropeanFellowship,NILegalServicesCommission,Socio-LegalStudiesAssociation,theformerScottish

77See,e.g.,Cullen,Metal(2017),‘ReviewofArrangementsforDisagreementResolution(SEND)’,conductedbyCEDARattheUniversityofWarwick,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/603487/CEDAR_review.pdf;andtheWelfareConditionalityProject,aconsortiumofsocialpolicyresearchers,http://www.welfareconditionality.ac.uk/who-we-are/



TribunalsandAdministrativeJusticeAdvisoryCommittee(STAJAC),JerseyLawCommission,StrategicLegalFund,TrustforLondon,andWelcome.SeveralprojectsarePhDorself-funded.This,albeitpartial,surveyindicatesthatthereisarangeoffundingopportunitiesandthatfunderscanbepersuadedtosupportadministrativejusticeresearch.However,moreneedstobedonetopersuadeabroaderrangeofpotentialfunderstochampionadministrativejusticeresearchasapriorityarea.Increasingfundingopportunitiesmayhelpattractawiderpoolofresearchers.Fundersalsoneedtobemoreagileintheconsiderationofapplicationstoallowforlarge-scaleandsmall-scaleprojectsandtoallowforquickerprojectsthatrespondtourgentneeds.Researchershavesuggestedthatthoughtshouldbegiventowhatresearchcanbedonewithoutresearchgrants,suchasthroughsmaller-scalepilotprojects.Manyombudschemesandotherredressmechanisms,forexample,areopentocommissioningresearchthathaswiderimplicationsforasectoranditsusers.78Seedmoneyshouldalsobeavailablefordevelopingproposals,includingforthosewhodonothaveaccesstouniversitysupport.AtaUKAJIworkshopinMay2017,itwassuggestedthatresearchersmightconcentrateonseekingrelativelysmallresearchfundsforworkonspecificandnarrowlyfocusedareasofadministrativejustice(e.g.onissuessuchashowtheveryyoungandtheoldexperienceadministrativejustice,orschoolexclusionandadmissionappeals)inordertobuildafoundationforlargerprojects.Thedeclineincentralgovernmentfundingforresearchofdirectimportancetogovernmentdepartmentsrepresentsakeychangeinthefundinglandscape.Until2010,theLordChancellor’sDepartmentanditssuccessor,theMinistryofJustice,commissionedregularindependentresearchprojects.79Inthepast5-7years,however,governmentdepartmentalbudgetsforcommissioningorconductingresearchhavebeenseverelycut.Foundations,trustsandotherfunderscannotbeexpectedalonetofillthatvoid,butthereneedstobeacoordinatedefforttoaddressthis.AccesstoresearchdataAccesstodataisalsoanimportantconstraintandinthissectionweexplorethedataaccessissuesfacedbyresearchers.CentralgovernmentOvertheyears,numerousresearchprojects(e.g.onimmigration,mediation,courtschemepilots,judicialreview)havebeenconductedwithessentialsupportfromgovernmentdepartments.Morerecently,althoughsomegovernmentdepartmentsidentifyaneedfor

78See,e.g.,Gill,Cetal(2014),‘ModelsofAlternativeDisputeResolution(ADR):AreportfortheLegalOmbudsman’,QueenMargaretUniversityConsumerInsightCentre.79Forexample,Hay,Cetal(2010),‘EvaluationofEarlyNeutralEvaluation:ADRintheSocialSecurityandChildSupportTribunal’,MinistryofJusticeResearchSeries2/10January2010;Moorhead,Retal(2008),‘Justsatisfaction?Whatdrivespublicandparticipantsatisfactionwithcourtsandtribunals’,MinistryofJusticeResearchSeries5/08March2008;Genn,Hetal(2006),‘Tribunalsfordiverseusers’,DCAResearchSeries1/06January2006.



betterdata,andwhilethereremainexamplesofexcellentcooperationbetweendepartmentsandacademics,manyindependentresearcherstoldusthattheyhadexperiencedobstaclesundertakingresearchinvolvinggovernmentdepartments.Someofthesearestructural;othersareaboutresourcesororganisationalcultures.Thereisaperceptionamongveteranresearchersthataccesstocentralgovernmentdepartmentsandtogovernment-helddata,aswellascourt-helddata,hasbecomemoredifficultoverthepastdecadeorso.Forexample,in2006-07,whileconductingresearchontheresolutionofjudicialreviewchallengesbeforefinalhearing,theresearchteamobtainedfullcooperationfromTreasurySolicitorlawyers.Sevenyearslater,thesameresearchteamwasmetwithsignificantlylesswillingnesstoengage,withclientconfidentialitybeingcitedasabarrier.Asaresult,mostofthelearningonpost-judgmentjudicialreviewimpactswasreliantoninformationfromotherdefendants,mainlylocalauthorities,despitethefactthatoverhalfofthecasesintheresearchsamplewereagainstcentralgovernment.Thiswasamissedopportunitytoimproveourunderstandingoftheeffectsofjudicialreview.AresearcherwithextensiveexperienceofresearchinthefieldofsocialwelfarefoundthattheunwillingnessofgovernmentdepartmentstofacilitateempiricalresearchhasalsomadeitimpossibletoincludetheUKincomparativeinternationalresearch.Thisagainrepresentsmissedopportunitiesforlearningandimprovingsystems.Researchershavereportedfailurebygovernmentofficialstoparticipateinresearchby,forexample,notrespondingtoquestionnairesornotallowingaccesstogovernmentlawyers.OfficialsareoftenfrustratedthatresearchersneedtosubmitFreedomofInformationapplicationsinresponsetolackofaccesstodata,andsomeresearchershavereportedfailuresbydepartmentstoreplytorequestsforaccess.Itmaybepossibletoidentifytrendsandpatternsindepartmentalopennessby,forexample,poolinginformationonrefusedFOIrequestsforaccesstodata.Theanticipateddigitalisationofthejusticesystemisalsolikelytoaffectpatternandpossibilitiesinthiscontext.80Therearemanyreasonswhydepartmentsavoidengagementinresearch,suchaspoliticalsensitivity;concernsoverissuesofsecurityandconfidentiality;apprehensionthatresearchfindingsmaybecriticalofadepartment,revealflawsinthesystemandcallforgreaterresources;lackoffamiliarityandtrustinrelationtoexternalindependentresearchers;andlackofappreciationoftheneedfortheresearch.OneresearcherreportedlongdelaysingettingaresponsefromtheDepartmentforWorkandPensions(DWP),withthedepartmentultimatelyrefusingaccessbecausetheresearch(ondecision-making)didnotfitintoitsstrategicobjectives.SeveralresearchershavebeenleftwiththeimpressionthattheDWParenotinterestedinexternalresearchonmandatoryreconsiderationduetothisbeingahighlypoliticalissue.Thereisaperceptionthatresearchisonlywelcomeifitislikelytoservethecurrentinterestsofpolicymakers,mostnotablywithregardtocostsavingandifitisunlikelytochallengedesiredpolicy.Thereisaviewamongstresearchers,forexample,thatworkonissuessuchasefficiencywillbemorereadilyaccommodatedthanworkthatislesscloselyalignedtopolicypriorities.

80Smith,R(2017),https://law-tech-a2j.org/odr/online-courts-the-unintended-consequences/



Researchersfindthe‘masstransactional’departments/agencies(DWP,HomeOffice)tobedifficulttoengagewith.Thismaybepartlylogistical,duetothenatureandscaleofthebodyandthelackofclarityastothebestcontactorrelevantdatacontroller,butsomeresearchersalsoexperiencethosedepartmentsasmoresuspiciousofexternalresearchersgenerally.Incontrast,departmentsthatarepolicymaker-heavybutrelativelylighton'transactional'functionstendtobemoreamenabletoengagingwithresearchers.Forexample,aresearcherhasfoundtheCabinetOfficetoberesponsiveandforthcomingwithwell-thought-outsuggestionsfortheproject.Evenwherethereiswillingnesstoengage,otherobstaclesarise,suchasobtainingjudicialapprovalandlackofcoordinationbetweenvariouspartsofthesystem.AresearcherinScotlandexperiencedresistanceonthepartofthejudiciary/CourtsandTribunalsServicetoaccessingcourtusers.Researchersarguedunsuccessfullythatthiswasnotaboutthesubstance/integrityofthedecision,andthereforenotamatterofinterferingwithjudicialindependence.Ateamresearchinglitigantsinpersonwasunabletoobtainjudicialapprovaltoobservehearingsorinterviewcourtstaff,despitehavingobtainedHMCTSapproval.Asaresult,theprojectredesignmeantareductioninthescopeofthequestionnairesandabandoningotherelementsoftheresearch.81Departmentsthemselvesoftendonotcollectdatathatcouldbeusefulnotonlytoexternalresearchersbutalsointernally.OneresearcherexperiencedtheMinistryofJustice(MoJ)/HMCTStobeveryapproachableintheirresponsetodatarequests.Wheretherewasdelayinresponding,itwasoftenbecauseofthemanylayersofapprovalnecessaryforcertaindata/access.Despiteageneralopenness,oneofthebiggerproblemsinrelationtodataisknowingwhatdataisheld—oftenthereisasenseoftakinga'stabinthedark'whenmakingrequests.InitsAdministrativeJusticeStrategyfor2013-16,theMoJnotedthatlackofaccesstoconsistentdataacrossgovernmentdepartmentshampersourabilitytounderstandwhatishappeninginpractice.TheMoJidentifiedthat:

‘[W]edonothaveconsistentsystem-widedataondecisionstakenbypublicsectorbodies,norondisputesresolvedsuccessfullybeforereachingtribunals.Thismakesitdifficulttoidentifywheretherearegenuineareasofconcernwithoriginaldecision-makingbodiesorwheregoodpracticeishavinganimpact.Italsodoesnotallowustoidentifywhere,insomeareas,appealstothetribunalmaybethemosteffectiveandefficientmechanismforpeopletoexercisetheirrights.’82

Despiteitscommitmenttodevelopbetterend-to-endsharingofdataacrosstribunalsandgovernmentdepartments,theMoJdecidedtofocusonparticularareasidentifiedaspressurepointsinthesystemand‘prioritisedthosetribunalswherethereisanidentifiableproblem,suchasanunexplainedincreaseinvolumesinthementalhealthtribunalorwhereagovernment

81Lee,RandTkacukova,T(2017),‘AStudyofLitigantsinPersoninBirminghamCivilJusticeCentre’,WorkingPaper,UniversityofBirmingham,Birminghamhttp://epapers.bham.ac.uk/3014/1/cepler_working_paper_2_2017.pdf82MinistryofJustice,‘AdministrativeJusticeandTribunals:AStrategicWorkProgramme2013–16’,para57,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217315/admin-justice-tribs-strategic-work-programme.pdf



departmentisassessingtheeffectivenessofanewpolicy’.83Thismaybeareasonablereactiontopressuresonpublic-sectorfinances,butitdoesnotallowforthetypeofanalysisidentifiedbytheMoJinitsstrategydocument.TheNationalAuditOffice(NAO)publishedareport84inNovember2016ontheimpactofbenefitsanctions,criticisingtheDWP’sfailuretoexamineitsowndata,tocollaboratewithresearchersortoassesstheoverallcosts/benefitsofthesanctionsregime.TheNAOnotesthatsanctionshavecostsforgovernmentaswellasforbenefitrecipients/applicants,andsaysthattheDWPshould‘supportbetterunderstandingoftheimpactofsanctions’:

‘Itshoulduseitsdata–includingrealtimeinformationonearnings–totrackthedirectandindirectimpactofsanctionsonthelikelihood,durationandqualityofemployment,includingforthosewithbarrierstowork.Itshouldadoptanopenandcollaborativeapproachtoworkingwithacademicresearchersandthird-partyorganisations.’

Evenwherethereisgoodwillandinterestinaproject,adepartmentmaybeunabletodevotetheneededresourcesforliaisonwithresearchers.Constraints(intermsoftimeandresources,forexample)ondepartmentsandthoseworkingwithinadministrativejustice,suchastribunalstaff,hampertheirabilitytoagreetoaccessrequestsfromresearchers.Whilecostconcernsarerealandmustbeacknowledged,itisgoodpracticetobuildevaluationsintothedesignandestablishmentofnewinitiativesorprocedureswhichshouldbemorewidelyadoptedacrossagencies.Forexample,whentheHomeOfficeadoptedamandatoryinternalreviewstageinitsasylumdecision-making,anevaluationbytheIndependentReviewerwasbuiltintothelegislation,andtheReviewerreportedin2016onhowthisnewprocedurewasworkinginpractice.85The‘siloworking’ofgovernmentoftenmeansthatthereislittleopportunitytoengageacrossdepartmentsororganisationsinordertosharelearning.Interestingly,researchershavereportedlessofasilostructureindevolvedadministrations.Thecross-governmentalcomplaintsnetworkrepresentsanexampleofgoodpractice,butlittleisknownoutsidethenetworkoftheworkitisdoing.TheOmbudsmanAssociationpresentsapositiveexampleofanorganisationthatworkstosharelearningacrossombudschemesandcomplainthandlers.Severalresearcherscommentedtousthattheirresearchdirectionshavebeenaffectedbytheanticipated‘impregnability’ofcentralgovernmentwithregardtocooperationinresearchandhavechosento‘gravitatetomoreopeninstitutions–localgovernmentandtribunals’.Therewerealsoindicationsthatthedevolvedadministrationsaremoreopentoworkingwithacademicresearchersthancentralgovernment,forexampleempiricalworkonsocialsecurity

83MinistryofJustice,‘AdministrativeJusticeandTribunals:FinalreportofprogressagainsttheStrategicWorkProgramme2013–2016’,para6.2,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/601481/administrative-justice-tribunals-final-progress-report.pdf84NationalAuditOffice(2016),‘BenefitSanctions’,HC628SESSION2016-1730NOVEMBER2016,https://www.nao.org.uk/wp-content/uploads/2016/11/Benefit-sanctions.pdf85Bolt,D(2016),IndependentChiefInspectorofBordersandImmigration,‘AnInspectionoftheAdministrativeReviewprocessesintroducedfollowingtheImmigrationAct2014’.



inNorthernIrelandandScotland,whichsuccessfullyinvolvedbothpoliticiansandpolicymakers.86LocalGovernmentandombudschemesResearchersreportedpositiveresponsestorequestsfordataandparticipationfromotherpublicbodiessuchaslocalauthoritiesandombudschemes.Forexample,anapproachtotheresearchcommitteeoftheAssociationofDirectorsofChildren'sServices–whichvetsresearchbeforerecommendingthattheirmembersparticipate-wassuccessful,butonlyafterhavingtoabandonimportantaspectsoftheresearchmethodology(observationandcasefileanalysis).Followingapprovaloftheproject,theresearcherobtainedagoodlevelofparticipationfrominvitedlocalauthorities.Ombudshavebeenfoundtobewillingtocooperatewithresearchers.TheScottishPublicServicesOmbudsman(SPSO),forexample,hasbeenreceptivetoaprojectonthemodelcomplainthandlingproceduresandcomplaintsdata,providingaccesstostaffandintroductionstokeylocalauthoritystaff.TheSPSOhasalsoaskedforbodiesundertheirjurisdictiontotakepartinastudyoftheimpactofcomplaintsonthosecomplainedabout.Researchersneedtounderstandtheinternalpoliticsandhierarchiesofombudorganisations.Asoneresearcherhasnoted:

‘Itwasallaboutrelationshipsbuiltwiththeseniorstaffwhothenusuallydelegatedtheinteractiontoamorejuniorcolleague.Thisthenenabledustoformaworkingrelationshipwithrelevantmembersofstaff,despitethefactthatparticipatingintheresearchwasinfactanadditionalburdentotheirexistingwork.’

Inanotherstudy,87theresearchteamreceivedfullcooperationfromtheOmbudsmanAssociation,withoutanyinterferenceintheprojectdesign,whichinturnledtoaresponserateof75%frommemberschemes.AccessingusersUnderstandingthe‘userperspective’isoneofthemostsought-afteraspectswithinadministrativejusticeandalsooneofthemostcomplextoresearchandthereforetounderstand.Someofthemethodologicalandethicalissuesthatariseincludeconfidentiality(e.g.withregardtopersonaldata,theprocessesforchallengeandredress,andoutcomes),vulnerabilityofmanysegmentsoftheconsumer-citizenpopulation,problemswithrepresentativesampling,andaccesstousers.InthecourseofUKAJI’sengagementwithstakeholderswehavebeenremindedoftheimportanceofassessingqualityofjusticeissuesratherthangeneralsatisfactionlevels,suchaswhetherpeopleexperienceddelaysintheprocessandtheirviewsonthefacilitiesatthehearingvenue.However,thisrequiresdirectaccesstousers.Confidentiality,ethicalconsiderationsanddataprotectionareanobviousconcernforanycourt,tribunalordepartmentrequestedtofacilitateaccesstousers.Oneresearchteamhaswrittenaboutbeingrequiredtoaddressthe

86See,forexample,https://www.ulster.ac.uk/staff/m-simpson87Doyle,M,Bondy,V,Hirst,C(2014),‘TheuseofinformalresolutionapproachesbyombudsmenintheUKandIreland:Amappingstudy’,https://ombudsmanresearch.files.wordpress.com/2014/10/the-use-of-informal-resolution-approaches-by-ombudsmen-in-the-uk-and-ireland-a-mapping-study-1.pdf



HMCTS’sconcernsregardingissuesofethics,asaresultofwhichtheyadviseothers‘toforwardtoHMCTStheethicalapprovaldocumentsandsubsequentconsentandtobeexplicitintheprocessofethicalapprovalinthoseareaswheretheremaybeimplicitorinternalunderstandingsabouthowresearchsystemswork’.88Researchingaspectsofusers’experiencehasbeendonethroughthefilterofathirdparty,suchaslegaladvisers,whocanthemselvesrelaytheirunderstandingoftheirclients’experiences.89Itisnotideal,butinmanycaseslawyershaveintensivecontactswiththeirclientsandareawareoftheirconcernsandofhowtheyexperiencethesystem.Buttheselawyerstooaredifficulttoreachanditmaybeunrealistictoexpectthemtodevotevaluabletimetoaprojectthatdoesnotobviouslyandimmediatelybenefitthem.Inordertoachievesuchcooperation,itisimportanttobeabletoconveyhowtheresearchaimsarerelevanttothosewhosehelpisbeingsought.Userresearchcanbedifficulttofundwhenitspotentialimpactisunknown.McKeeverhasnotedthat‘therehastobeabalancebetweentheneedtodoresearchbecauseitisimportantandtheneedtodoresearchbecauseitcanhaveanimpact.Ideally,thetwowouldcometogether,buttheresearchcanstillbeimportantingivingavoicetotheuser,evenifthatvoiceisnotpersuasiveenoughtocreatesystematicorstructuralchange’.Shealsonotesthatweoftenreferto‘users’experienceandvoice’,buttheseneedtobebalancedwiththevoicesofthoseworkingwithinthesystem,wheretheissuesofoperationalefficiencymaybetheoverarchingpriority.

Shouldresearchersbepragmaticandacceptthatitmayneverbepossibletoaccessdatafromsomegovernmentdepartments,orotherpublicbodiesandprivatecontractorscarryingoutworkontheirbehalf?Inotherwords,shouldresearchprioritiesbefocusedontheinstitutionsthatcanbeaccessed?Thechallengeistoidentifythe‘soft’pointofrocksfromthe‘hard’rocks,focusingonthoseareaswhereitispossibletoopenupmeaningfuldialogueontheuse/typesofdata.OthersuggestionsincludeusingexistingdatabaseswherepossibleandengagingwiththeUKStatisticsAgencytoencouragedepartmentstoopentheirdatatoresearchers.88Lee,RandTkacukova,T(2017),‘AStudyofLitigantsinPersoninBirminghamCivilJusticeCentre’,WorkingPaper,UniversityofBirmingham,Birminghamhttp://epapers.bham.ac.uk/3014/1/cepler_working_paper_2_2017.pdf89See,e.g.,Bondy,V,Platt,LandSunkin,M(2015),‘TheValueandEffectsofJudicialReview’,atp.39onclaimants’experiencesinJRclaims,http://www.publiclawproject.org.uk/data/resources/210/Value-and-Effects-of-Judicial-Review.pdf

ConsultationQuestion1:

Haveweaccuratelysummarisedtheconstraintsandobstaclestoempiricalresearchinadministrativejustice?Ifnot,inwhatwaysisthesummaryinaccurate?

ConsultationQuestion2:

Howareconstraintsonfunding,capacity,andaccesstobeaddressed?



Weareawarethatuntappeddataresourcesexist.Ombudsanddisputeresolutionservices,forexample,haveexpressedaninterestinresearchershelpingthemanalysethedatatheyholdoncomplaints.Governmentdepartmentsandresearcherscanmutuallybenefitfromsharingexpertise.Othermechanismsofsupportforahealthyresearchenvironmentcanbefostered,forexample,facilitatingaccesstodataheldbygovernmentdepartmentsandotherorganisationstoimproveunderstandingoftheoperationsofthesystem.UKAJIisengagedinworkdesignedtoidentifypubliclyavailabledatasourcesintheformofascopingprojectonadministrativedatarelatingtoadministrativejusticeheldbycentralgovernment.Thisprojectfocusesinthefirstinstanceondataonbenefitsandsocialsecurity,immigration,andcourtsandtribunals.Thisprojecthasthepotentialtobeexpandedtocoverotherareasofgovernment-helddataandprovidearesourcetoresearchers.



Wehaveaddressedthequestionofwhereweneedtogointwoways:anoveralllookattheneedsofthesystem,intermsofdesignandinstitutionalapproach,andthespecificpriorityareasforresearch.

3.1Afreshstrategicandinstitutionalapproach

Oneofthekeylearningpointsfromourworkinthepastthreeyearsisthatcoordinationandoversightareneededinordertotakeaholisticandforward-lookingperspectiveofresearchneedsandpriorities.Withoutabodycapableofensuringthattheresearchagendakeepspacewithchange,thereareinevitablerisksthatnewandemergingresearchneedswillnotbemet.Forthisandotherreasons,UKAJIbelievesthatafreshstrategicinstitutionalapproachtoresearchonadministrativejusticeisneeded.Thiswillnecessarilyrequireafocusonoverall

designissues.Duringourworkwehaveseenthevalueofresearch,butwehavealsoseenavarietyofsituationswhereresearchhasbeenlesseffectivethanitmighthavebeen,includingbecausedatahasnotbeenavailable,aswellassituationswhereopportunities,includingthoseavailabletogovernmentdepartments,toevaluatereforms,havebeenmissed.Oneofthelessonsdrawnisthatdatacollection,evidencegathering(includingpiloting),andevaluationshouldbebuiltintosystemdesignandplanningratherthanbeleftforpost-hocresearch.Ourcontactswithvariousstakeholdershaveshownaneedandadesireamongstakeholdersforgreaterawareness,cooperationandlearningacrosssystemsandacrossjurisdictions.Inordertohelpachievethis,thereisconsiderablevalueinenablingpolicymakersandacademicsto

SECTION3–Whereweneedtogo



worktogethertoincreasemutualunderstanding;toensurethatappropriatedataiscollected;thatpilotsaredesignedandundertakenbyindependentresearchersincollaborationwiththerelevantbodies;thatevaluationsareeffective;andthatlearningisshared.Wehaveconsideredwhether,inordertopromotethesegoals,thereisaneedforabodywithappropriateresearchexpertiseandoverviewofongoingresearchtoprovideinformationandaccesstoresources(suchasthoseascurrentlyprovidedbyUKAJI)andtoenablepolicymakers,practitionersandacademicstomeetandliaiseonresearchrelatedissues.Suchabodyshouldbeinstrumentalin,amongotheractivities:

Takinganoverarchingperspective:• developingasystem-wideperspectivetoresearchthatrespondstonewchallengesandidentifies

evolvingstrategicprioritiesovertime• sharingexperiencesofinitiativesandnovelapproachestakenbydevolvedadministrations,andhow

theymayapplyacrosstheUK• collaboratingwithfundingbodiestopromoteaholisticviewoffundingresearchthatlinksupsoasto

addresspatchinessofprojectswithinthesamearea(e.g.digitalisation)andmovetowardscoordinatedresearchagenda

Linkingpeople:• bringingtogetheracademicsandotherresearchersacrossdisciplinesanddevelopingon-going

relationshipsandpromotingtrustbetweenindependentresearchersandbodiesresearched• helpingsupportresearchnetworksthatwillfacilitatesharingofresearchknowledge,methodologies

andpractice• encouragingnewwaysofbringingtogetherthosewhousethesystemandthosewhoworkinitto

enableallperspectivestobetakenintoaccount

Improvingevidencegathering:• facilitatingindependentinputtoassesswhatdataiscollected(andwhatisnot)andensuringthatdata

formonitoringqualityofdecision-makingandredress/outcomesissufficient• helpinggovernmentandotherpublicbodiestoauditthedatatheycollectandsharethisinformation

withresearchers• promotinggovernmentcommitmenttotransparentindependentevaluationofpilotinitiatives,with

suchmattersasclearexplanationoftargets,monitoringarrangements,andsuccessmeasures.

ConsultationQuestion3:Istherein-principlesupportforabodyabletoplaythesortofroleswehaveoutlined?IfYES,whatformshouldsuchabodytakeandhowshoulditbefunded?Arethereanyotheractivitiesthatshouldbeundertaken?Areanyoftheactivitiesmentionedinappropriateforsuchabody?IfNO,whynot?



3.2Futureresearchpriorities

Duringthecourseofourwork,incollaborationwithresearchers,ombuds,advicenetworksandgovernment,wehaveidentifiedprioritymattersthathaveparticularimportanceacrossadministrativejusticeandwhichwarrantspecialattentioninresearchplanning.Thesemaybesummarisedunderthefollowingheadings:principles,information,people,andprocesses.Herewesketchoutverybrieflytheissuesthatweseeasbeingraisedunderthesepriorityheadings,includingproposedresearchquestions.Atthisstagetheseareindicativeratherthancomprehensive.Theyaremattersthatcutacrossmanyaspectsofthejusticesystem,althoughtheyhaveparticularbiteinrelationtoadministrativejustice.Inevitablytherearemanyoverlapsbetweenthesepriorityareas–exploringtheimpactofusingdatatoshapesystemdesign,forexample,ortheimpactonusersofapplyinghumanrightsprinciplestoredressmechanisms.Thesynergiesandoverlapsillustratetherichpotentialthatexistsforcollaborative,multi-perspectiveandmulti-disciplinaryapproachestoempiricalresearchinadministrativejustice.Digitalisationandthechallengeswehavenotedrelatingtodigitaljusticeanddeliveryofpublicservicesfeatureinallfourpriorityareas.Itisclearthatthisisasubjectrequiringcoordinationofresearchsothataspectsofdigitalizationarenotinvestigatedinanadhoc,disconnectedway.Whileweargueforamorestrategicapproachtoresearchandtoidentifyingprioritythemes,thisisnotintendedtodiminishthevalueinherentinmoretraditionalresearcher-ledinitiatives.Administrativejusticeisarichareaforresearchandimportantworkwillcontinuetobedonebyresearchersdrivenbytheirowninterests,experiences,expertiseandconcernsinresponsetochangeandnewcircumstances.



PrinciplesByprinciples,wemeanthevaluesthatunderpinanyjusticesystem,includingnotjustcourtsandtribunalsbutjusticewithineverydayinteractionsbetweenindividualsandtheStateandtheoutcomesthatresult.Weareinterestedtoexplorewhatpeopleunderstandbyfairnessandfairoutcomesandwhetherthisisthischanginginlightofrecentdevelopments.Alliedtothisistheneedtoevaluatecontinuouslytheprotectionaffordedtoadministrativejusticeprinciples-e.g.timeliness,independence,fairness,publicaccountability–andhumanrightsprinciplesthatunderpinindividuals’interactionswithpublicbodies.Ithasbeennotedthatadministrativejustice,dealingasitdoeswiththehighestvolumeofdecision-makingandredressmechanismsintheentirejusticesystem,confrontsaconstanttensionbetweenqualityandquantity(balancingcost-effectivenesswithfairnessandaccuracy).90Withcostandefficiencyaskeyprioritiesoftheadministration,thedangeristhatlesstangible‘goods’,suchasfairness,accountability,transparency,anddignity,areoverlookedorrelegated.Relatedtothisistheimportanceofassessingthesubstantiveoutcomesforindividuals.Whatisthequalityofadministrativereviewdecision-making?Doesitdeliver‘justice’?Obtainingappropriateaccessanddevelopingrelevantmeasurementmethodsaretwosignificantchallengestoassessingthequalityofdecision-making.Researchers’experienceshowsthatinvestigatingthisquestionwithinalocalgovernmentsetting,asmall,definedjurisdiction,orasingleredressmechanismmayprovideausefulstartingpoint.

InformationInformationisconcernedwithwhatisknownandwhatneedstobeknownaboutthesystemfrominitialdecision-makingthroughtoredressmechanisms.Giventhecourtsandtribunalsreformprogrammeandthemoregeneralmovetodigitalisationincitizen-stateinteractions,theissueofdatarecordingandavailabilityraisesanumberofkeyresearchconcerns,includingresearchers’accesstodata(andindeeddepartments’accesstodatamanagedbyprivatecontractors);whatdataiscollectedandhowresearchersknowwhatisrecorded;andconsistencyofdata;andhowdataisusedbyprovidersanddecision-makers.Importantissues

90See,e.g.,Thomas,RandTomlinson,J(2016),‘CurrentIssuesinAdministrativeJustice:Examiningadministrativereview,betterinitialdecisions,andtribunalreview’,https://drive.google.com/file/d/0B9hEf7Oxz59QR2toVWEwQkhVcEk/view

ResearchquestionsforPrinciplesprojects• Whatdoesahumanrightsapproachrequire?• Howwouldsuchanapproachaffectusers’experiences,andhowarehumanrightsreflectedin

initialdecision-making,complainthandling,andappeals?• Whatareopportunitiesofferedbydigitalisationforgreatertransparencyandopenjusticeand

whataretherisksandthreatsposedbydigitalisation,andhowcantheserisksbeovercome?• Howcanfearsof‘Secret’justice(e.g.rulesonsecrecyinevidence,andlackofscrutinyforpilots)

bemet?• Howtoensureaccountabilityindecision-makingdelegatedtoprivate-sectorcontractors?• Cansuchinitiativesasautomateddecision-makingbeundertakeninaccordancewithprinciples

ofaccountabilityandopenjustice?



alsoariseinrelationtohowinformationisobtainedandusedinrelationtoparticularcomplaintsanddisputesandwetouchontheseunderprocessesbelow.Thisareacouldincludesuchmattersasinformationdiscoveryanduseofevidencebydecision-makers,andhowproviderssuchaslocalauthoritiesuseinformationabouttribunaldecisions.

PeopleThepriorityareaofpeopleisconcernedwithhowpeople(includingthosewithparticularvulnerabilities)experience,operatewithin,andareaffectedbytheadministrativejusticesystem.Thisincludesaccessforusersandusers’experiences,butalsonon-usersandtheexperiencesofoperatorsanddecision-makerswithinthesystem.Alsowithinthispriorityaretheneedtoresearchadviceandsupport;theimpactofrepresentation;andproceduraljusticeforthosewhogothroughmediationanddifferentformsofhearing(paper,oral,online).Oneapproachtoresearchingtheuserperspectiveistostartwith‘thefurthest’,themostdifficultgroups/individualstoengagewith,thosemostlikelytobeleftbehindbythedigitalagenda.91‘Thefurthest’includes,forexample,astay-at-homeparentwhodoesnotspeakEnglishandhasnoInternetaccess,anelderlypersoninacarehome,ahomelessteenager.Forthejusticesystemandthoseworkingwithinit,itisvitaltobeabletomodelelasticityofdemandbyusers(usingfactorssuchastribunalfees,self-representation,etc)andtoconsiderthisfordifferentgroupsofusersanddifferentjurisdictions.Afocusonusers’experienceandvoiceneedstobebalancedwiththevoicesofthoseworkingwithinthesystem,wheretheissuesofoperationalefficiencymaybetheoverarchingpriority.

91Doteveryone,‘WhyBetterDigitalCommissioning?’,https://projects.doteveryone.org.uk/improvingcare/pages/commissioning.html

ResearchquestionsforInformationprojects• Understanding(throughaudit)whatdataiscollectedbydepartmentsandontribunalappeals

andjudicialreview,includingstatistics,decisionsandguidance?• Howaredatasetsestablished,accessed,shared(dataaudit,standardisationofdata)and

analysed?• Usingdatatosetstandardsacrossthesystem,indecision-makingandreviewandappeals• Informationonkeymatterssuchascosts–comparativeacrossdepartmentsandmechanisms,

andstudiesofcostsofnotgettingdecisionsrightfirsttime• Moregranularmanagementinformationonusersoftribunals• Identifyingwhatdataisnotcollectedandshouldbe,andhowopennessandtransparencycan

beimprovedthroughaccesstodatasetsandpermissions• Investigatingtheroleofprivatecontractors(e.g.Capita,ATOS,Resolver)indatacollectionand

controlwithinadministrativejustice• Consideringthe‘datarelationship’betweengovernmentandnewtechnologies(theCloud,

GAFA)• Consistencyofoperationalandoutcomedataacrossombudssystem,anddatasharing



ProcessesThepriorityareaofprocessesisconcernedwiththeusesandimplicationsofprocesschangesandaccesstoadministrativejustice,aswellaswiththeprocessoflearningfromdecisionsacrossthesystem.Withinthispriorityarea,theprimaryfocusforresearchshouldbetheuseofnewtechnologiesanddigitalisation,fromwhichwillflowsomeofthemostsignificantdevelopmentsaffectingadministrativejusticeoverthenextfewyears.Theseareradicallyalteringhowpeopleandadministrationsinteract,including:howpeopleaccessadviceonline;thedevelopmentofautomateddecision-makingandnewformsofdisputeresolution;howdataiscollected,managedandused;therelationshipsbetweentheStateandpowerfulprivate-sectororganisations(suchasGAFA:Google,Apple,Facebook,Amazon).Inthiswayprocessesasapriorityareaoverlapswithpeopleandprinciples.Theuseanddevelopmentofnewtechnologiesofferconsiderableopportunities,includingforresearchers,buttheyalsoposepotentialthreatstohumanrightsandthequalityofjustice92andraisenewissuesofdatagovernance.93Newtechnologiesalsohavepotentialtotransformhowlawisdevelopedandscrutinised,mattersofinteresttoconstitutionallawyersbutalsoimportanttotheempiricalstudyof

92SeeESRCprojectonHumanRightsBigDataandNewTechnologies(HRBDT)basedattheUniversityofEssex:www.hrbdt.ac.uk.93DataManagementandUse:Governanceinthe21stCentury,JointReportoftheRoyalSocietyandtheBritishAcademy:https://royalsociety.org/~/media/policy/projects/data-governance/data-management-governance.pdf

ResearchquestionsforPeopleprojects• Identifyingandaddressingunmetneedandneedsofthosewhodonotchallengedecisions

(hiddenpopulations)• Earlydecisionpointsandinfluence–theroleoftheadvicesector,informationonroutesto

redressandchoicesmadebycomplainants• Persistentcomplainantsandhowtoencouragesmartercomplaints• Modellingelasticityofdemandandexploringhowdemandvariesfordifferentgroupsofusers

anddifferentjurisdictions• Attitudestowarddigitalservices,andmorein-depthknowledgeofthedigitaldivideandhow

thisaffectsaccesstojusticeinthereformedsystem• Mappingremediesavailable,inuser,ornotusedbypublicbodiesacrossthesystem(including

apologies,compensatorypaymentsandotherformsofredress)• Users’experiencesofalternativemethodsofdisputeresolutionincludingactualpracticeof

informalresolutionbyombuds• Whoisaccessingtheadministrativejusticesystem–knowingmoreaboutthedemographic

characteristicsofusersandtheirgeographicallocationwouldshedlightonkeyaccessissues• Experiencesofredressforindividualswithmentalhealthproblems,includingoperationof

initialdecisions(e.g.onsectioning)andconsequentimpactontribunal• Experiencesofusersacrossdevolvedadministrations–e.g.usingtheSocialFundasacase

studyforcomparativeresearch• Whatdoesamodelofuserinvolvementlooklike?• Howtoidentifyandaddressthevariouseffectsofplanneddigitisationontheaboveaspectsof

users’engagementwithadministrativejustice



accountabilityfornewpolicyinitiatives.RichardSusskindrecentlyproposed94twoareasofresearchneededinrelationtoincreasinguseofITindevelopingandscrutinisinglegislation,includingsurveyingwhathasbeenachievedusingtechnologybyotherlegislaturesproducingadetailedmapshowinghowlegislationisproducedintheUK.Digitalisation,however,shouldnotbetheonlyfocusofworkonprocesses;thisareaisalsoconcernedwithfilteringprocessesandtriage;judicialdecision-making;alternativestoadjudication;pilotinitiatives;therelationshipsbetweencomplaintandredressmechanismsincludingtribunals,judicialreview,ombudsandmediation.Therewillalsobecontinuingneedtodevelopworkonhoworganisationscanlearnfrommistakesandthevalueoffeedback.Thereareculturalissuesaboutanorganisations’willingnesstoconsiderandapplypotentiallearningfromearlieractions.Theimportanceoftheseissuesisunlikelytodiminish.Thereisaneedtounderstandhowinformationaffectsoutcomesofindividualdisputesorcomplaints.Forexample,whyaresomeappealssuccessfulandothersnot?Aredecisionsoverturnedbecauseofinitialerrors,becauseclaimantssubmitnewevidence,orforotherreasons?Departmentsusuallyexplainthisasbeingduetonewevidence,butthisremainsanunknownbecausenodatahavebeencollectedandanalysed.Similarlywithombuds’complaintsinvestigations?Whataccountsforthevaryinglevelsofupheldcomplaintsamongdifferentombudschemes?Thequestionalsolinksupwithfeedbackand‘rightfirsttime’issuesandgoesrighttotheheartofhowadministrativejusticeoperates.

94http://data.parliament.uk/writtenevidence/committeeevidence.svc/evidencedocument/constitution-committee/legislative-process/written/43991.pdf

ResearchquestionsforProcessesprojects• Whataretheimplicationsofincreasedautomateddecision-makingbygovernment

departments?• Whatrolecandigitisationplayinimprovingsharingofgoodpractice,standards,andguidancefor

decision-makers?• Howwillincreaseddigitalisationoftribunalworkaffectoutcomes,andwillthisleadtoless

inquisitorialpracticesbytribunaljudiciary?• Istherescopeforfact-findingbytribunals?• Howwillaccesstosupportandadviceworkindigitalprocesses?• Understandingofimpactonusers’experiencesandonoutcomesofincreaseduseofpaper-

basedappealsratherthanin-personhearings• Morepilots,independentlyevaluated,ofdigitalapproachesandtheeffectonproceduraljustice

andoutcomes• UseofITinmedicalevidenceintribunals–increasedeffectiveness,risktoprivacyanddata

protection• Analysisofcostsavingsgeneratedby‘digitalbydefault’



Wewelcomeyourviewsandfeedback.Pleaserespondusingthisonlinesurvey.Allresponsestothesurveywillbeanonymous.Notethatthereisnoobligationtoprovideyouremailaddressinordertocompletethesurvey.Ifyouprefertorespondbyemail,pleasesendyourresponsestoeachofthequestionstoukaji@essex.ac.ukPleaserespondby30September2017.

ConsultationQuestion5:Doyouhaveanyothercommentsorsuggestions?

ConsultationQuestion4:Isithelpfultoresearchers,fundersandotherstakeholderstoidentifypriorityareasforresearch?IfYES,haveweidentifiedtherightpriorityareas?Arethereotherstoinclude?Ifso,pleasespecify.

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UKAJI Research Roadmap FINAL 100817 - UKAJI | The UK Administrative Justice … · 2017-08-10 ·...

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