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Court Presidents: The Missing Piece in the Puzzle of Judicial Governance

Published online by Cambridge University Press:  06 March 2019

Abstract

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The aim of this paper is to provide a new comprehensive understanding of roles of court presidents in judicial governance in Europe. It argues that in order to better understand the role of court presidents in comparative perspective it is necessary to unpack their power into smaller components that can be analyzed separately. We define seven such components: judicial career, jurisprudential, administrative, financial, ambassadorial, and media power, and ancillary powers as a residual category. Subsequently, we zero in on 13 European jurisdictions and rate them according to the strength of their court presidents' powers. By doing so we are developing a Court President Power Index. Based on this Index we question the claim that Western court presidents are always weaker than their Eastern European counterparts and argue that powers of court presidents diverge both within Western Europe and within Eastern Europe, and hence it is difficult to draw the easy line along the West/East axis on this ground. Finally, we problematize our Court President Power Index and show that powers in the meaning of faculty do not necessarily translate into influence since various contingent circumstances (such as the length of court presidents' terms of office, information asymmetry, the structure of the judiciary, the existence of competing judicial self-governance bodies, the role of individuals, the proximity of court presidents to political leaders, the legal profession, legal culture, and the political environment) affect to what extent court presidents may exploit their powers in practice.

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Articles
Copyright
Copyright © 2018 by German Law Journal GbR 

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123 The “transmission belt” metaphor suggests that court presidents, who could be recalled by the ruling party/individual anytime at a whim, become the conduit of the ruling party/individual influence over individual judges. The main role of the court presidents is then to “transmit” orders from the ruling party/individual to individual judges in sensitive cases. See e.g. Kosař, supra note 11, at 101, 105, 117, and 121-122; and Rachel Ellett, Raul Sanchez Urribarri & Alexei Trochev, Chief Justice as a Political Agent: Evidence from Zambia, Venezuela, and Ukraine, paper presented at the ECPR General Conference in Prague on 9 September 2016 (on file with author).Google Scholar

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125 This is the case of Czechia, or, to some degree, of Netherlands, where court presidents implement court's budget through the Management Boards; see Blisa, Papoušková & Urbániková, supra note 89, and Mak, supra note 89.Google Scholar

126 Slovakia E.g., see Spáč, Śipulová & Urbániková, supra supra note 77.Google Scholar

127 See Popova, supra note 41, at 134.Google Scholar

128 Id. Google Scholar

129 See Solomon 2010, above note 41, at 354; or Solomon 2012, supra note 41, at 912.Google Scholar

130 See Kosař, supra note 9, at 361 and 369.Google Scholar

131 See Krenn, supra note 26, and his description of the role of the then Court President Skouris in the institutional reform of the General Court. Moreover, the CJEU's Court President has the power to further shape the image of the Court in that external activities of judges are subject to prior approval by their peers, and the Court President has quite a significant say in this.Google Scholar

132 Çalı & Cunningham, supra note 29, describe the role of the then ECtHR's President Jean-Paul Costa in the introduction of the Advisory Panel and the suggested influence over its composition.Google Scholar

133 See e. g. Lo, P. Y., Chief Justice McLachlin and Hong Kong, I-Connect (October 1, 2017), http://www.iconnectblog.com/2017/12/lo-on-chief-justice-mclachlin/; for speeches of the Justices of the High Court of Australia see http://hcourt.gov.au/publications/speeches/speeches-by-current-justices; for speeches by the judges from New Zealand see https://courtsofnz.govt.nz/publications/speeches-and-papers; and others.Google Scholar

134 See Chief Justice's Year-End Reports on the Federal Judiciary, https://www.supremecourt.gov/publicinfo/year-end/year-endreports.aspx.Google Scholar

135 Benvenuti & Paris, supra note 89.Google Scholar

136 Hungary, Baka v., supra note 48, para 44.Google Scholar

137 For further details, see Kosař & Śipulová2018, supra note 1.Google Scholar

138 See note 5 above.Google Scholar

139 See note 5 above.Google Scholar

140 See Case C 216/18 PPU Minister for Justice and Equality v LM; and the “The CJEU's Deficiency Judgment” symposium at the Verfassungsblog (https://verfassungsblog.de/category/focus/after-celmer-focus/). See also the other two pending cases initiated by the European Commission before the CJEU (Case C-192/18, Commission v. Poland, pending; and Case C-619/18, Commission v. Poland, pending). In December 2017, the European Commission also launched the so-called Article 7 proceedings against Poland over changes to the judicial system.Google Scholar

141 See. e. g. Jeffrey K. Staton, Judicial Power and Strategic Communication in Mexico (2010); Shai Dothan, Reputation and Judicial Tactics (2015); Georg Vanberg, The Politics of Constitutional Review In Germany (2005); Lawrence Baum, Judges and Their Audiences: A Perspective on Judicial Behavior (2006); Olga Frishman, Court-Audience Relationships in the 21st Century, Mississippi Law Journal (forthcoming); Nuno Garoupa & Tom Ginsburg, Judicial Reputation: A Comparative Theory (2017); the CCJE also lists “maintaining and developing relations with other bodies and institutions” as one of the key roles of the court president, see supra note 49.Google Scholar

142 David, Lawrence, The Face of and Institution: Beverly McLachlin's Reinvention of the Role of the Chief Justice of Canada, I-Connect (December 8, 2017), http://www.iconnectblog.com/2017/12/david-on-chief-justice-mclachlin/.Google Scholar

143 Fine, Sean, The secret short list that provoked the rift between Chief Justice and PMO, The Globe and Mail (May 23, 2014), https://www.theglobeandmail.com/news/politics/the-secret-short-list-that-caused-a-rift-between-chief-justice-and-pmo/articlel8823392/.Google Scholar

144 Reference re Supreme Court Act, ss. 5 and 6, [2014] 1 S.C.R. 433, 2014 SCC 21. For further details, see Carissima Mathen. The Shadow of Absurdity and the Challenge of Easy Cases: Looking Back on the Supreme Court Act Reference, 71 Supreme Court Law Review 161 (2015).Google Scholar

145 See e.g. Stefanus Hendrianto, The Puzzle of Judicial Communication in Indonesia: The Media, the Court, and the Chief Justice, In Justices and Journalists: The Global Perspective 141 (Richard Davis & David Taras eds., 2017).Google Scholar

146 See e.g. Robinson, Duncan & Barker, Alex, EU's top judge defends ECJ against charges of integration agenda, Financial Times (November 22, 2016), https://www.ft.com/content/0e132ef8-af0c-11e6-a37c-f4a01f1b0fa1.Google Scholar

147 Wojciech Sadurski, Constitutionalism and the Enlargement of Europe (2012), at 1. For Wildhaber's vision of the Strasbourg Court, see Luzius Wildhaber, The European Court of Human Rights: The Past, The Present, The Future. 22 American University International Law Review 521 (2007).Google Scholar

148 Germany E. g., see Seibert-Fohr, supra note 81, at 506.Google Scholar

149 The Supreme Administrative Court's President, Josef Baxa, is a regular guest of radio show called How He Sees It, and the Constitutional Court's Chief Justice Pavel Rychetský frequently gives interviews on topics ranging from the judicial to the purely political ones; see e. g. Martin Biben & Markéta Śrajbrová, Prezident nemůže protahovat vládnutí kabinetu bez důvěry neomezeně, Hospodářské noviny (November 1, 2017), https://archiv.ihned.cz/c1-65935270-prezident-nemuze-protahovat-vladnuti-kabinetu-bez-duvery-neomezene-hrozi-mu-ustavni-zaloba-tvrdi-rychetsky; or Kristýna Novotná, Mám obavy ze Zemanovy kohorty panošů, Ovčáčka by měli na hodinu vyhodit, říká šéf Ústavního soudu Rychetský, iRozhlas (January 8, 2018), https://www.irozhlas.cz/zpravy-domov/pavel-rychetskymilos-zemanjiri-ovcacek_1801080600_ogo. Note that in the polls assessing the popularity of public officials, Rychetský often comes out on top of the ladder.Google Scholar

150 Johannès, Franck, Le premier président de la Cour de cassation s'inquiète du pouvoir croissant du Conseil d'Etat, Le Monde (December 21, 2015), https://www.lemonde.fr/police-justice/article/2015/12/21/le-premier-president-de-la-cour-de-cassation-s-inquiete-du-pouvoir-croissant-du-conseil-d-etat_4835887_1653578.html. For further background of this rare public disagreement between the First President of the French Cour de Cassation Bertrand Louvel and the Vice-President of Conseil d'État over the dualism of the French judiciary, see Marie-Christine de Montecler, Duel à distance sur le dualisme juridictionnel, Dalloz Actualite (July 28, 2017), https://www.dalloz-actualite.fr/flash/duel-distance-sur-dualisme-juridictionnel#.W-vVI_eKNzjw.Google Scholar

151 See e. g. the Twitter account of the Czech SAC's President Josef Baxa, at https://twitter.com/josefbaxa2.Google Scholar

152 David, supra note 142.Google Scholar

153 Id. Google Scholar

154 Canada Elections Act, S.C. 2000, c.9, s. 14(1).Google Scholar

155 About the Judges, Supreme Court of Canada (August 28, 2017), http://www.scc-csc.ca/judges-juges/about-apropos-eng.aspx.Google Scholar

156 Mak, supra note 89.Google Scholar

157 Avbelj, supra note 76.Google Scholar

158 O'Brien, , supra note 70.Google Scholar

159 Wittreck, supra note 92.Google Scholar

160 See Pérez, Aida Torres, Judicial self-government and judicial independence: the political capture of the General Council of the Judiciary in Spain, in this issue.Google Scholar

161 Vauchez, supra note 78.Google Scholar

162 See Bodnar, Adam & Bojarski, Lukasz, Judicial Independence in Poland, In Seibert-Fohr, supra note 17, at 673.Google Scholar

163 This was the case in Slovakia during the era of the Chief Justice Śtefan Harabin (2009-2014). See Spáč, Śipulová & Urbániková, supra note 77; and Kosař, supra note 9.Google Scholar

164 See supra notes 1 and 136-137.Google Scholar

165 See Spáč, Śipulová & Urbániková, supra note 77.Google Scholar

166 This was the case in Slovakia during the era of the Chief Justice Śtefan Harabin (2009-2014). See Spáč, Śipulová & Urbániková, supra note 77; and Kosař, supra note 9.Google Scholar

167 This has been the case in Czechia since the late 1990s. See Kosař, supra note 11.Google Scholar

168 Note that court presidents may build such loyalty by other means as well – for instance, by a selective use of administrative power or by not initiating the disciplinary motion against a judge who deserves it.Google Scholar

169 See Part D.Google Scholar

170 For potential avenues for future research see Part E.Google Scholar

171 For explanation, why we omitted Spain and Turkey and why we added Russia, see below.Google Scholar

172 That is why we omit Spain and Turkey, because we simply do not have sufficient, relevant and accessible information on Spanish and Turkish court presidents.Google Scholar

173 See also Solomon 2012, supra note 41; Solomon, supra note 41, at 354; Schwartz & Sykiainen, supra note 36, in particular at 995-996, 1003, 1008-1009, 1012, 1018-1027 and 1031-1034; Popova, supra note 17.Google Scholar

174 For pragmatic purposes, we leave aside the ancillary powers of court presidents as we do not have sufficient information about them and they are often incommensurable.Google Scholar

175 We include both formal and informal powers of court presidents, as in many cases the informal powers are interlinked with the formal ones and may be even more consequential.Google Scholar

176 This categorization is inspired by the table in Nuno Garoupa & Tom Ginsburg, Guarding the Guardians: Judicial Councils and Judicial Independence, 57 Am. J. Comp. L. 103, 122 (2009).Google Scholar

177 See e.g. the recent developments in Poland and Hungary. However, court presidents’ powers have been subject to changes also in Czechia, Ireland, Slovakia, as well at the CJEU and the ECtHR.Google Scholar

178 We address this issue in Part D below.Google Scholar

179 We address this issue in Part D below.Google Scholar

180 Solomon, supra note 41; Lawrence David, The Face of an Institution: Beverley McLachlin's Reinvention of the Role of the Chief Justice of Canada, I-CONnect, (December 7, 2017) http://www.iconnectblog.com/2017/12/david-on-chief-justice-mclachlin/.Google Scholar

181 For a similar opinion, see also Solomon, supra note 41, at 918.Google Scholar

182 See Seibert-Fohr, supra note 81, at 481-483.Google Scholar

183 See Art. 21a Gerichtsverfassungsgesetz (German Constitutional Law on Courts).Google Scholar

184 See Judgment of the German Federal Administrative Court of 28 November 1975 (BVerGE 50, 11 = NJW 1976, 1224).Google Scholar

185 Riedel, Johannes, Recruitment, Professional Evaluation and Career of Judges and Prosecutors in Germany, In, Recruitment, Professional Evaluation and Career of Judges and Prosecutors in Europe (Di Federico, Giuseppe ed., IRSIG-CNR 2005) 69-126, at 98-107.Google Scholar

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188 Mak, supra note 89.Google Scholar

189 See Gutan, supra note 67; and lancu, supra note 67, at 594-596.Google Scholar

190 See Gutan, supra note 67. Note that the mandate of court presidents shall be prolonged to four years.Google Scholar

191 See Gutan, supra note 67.Google Scholar

192 See Gutan, supra note 67.Google Scholar

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194 O'Brien, , supra note 70.Google Scholar

195 See O'Regan, Michael, Judicial appointments Bill passes in Dáil and now goes to Seanad, The Irish Times (May 31, 2018), https://www.irishtimes.com/news/politics/oireachtas/judicial-appointments-bill-passes-in-d%C3%A1il-and-now-goes-to-seanad-1.3515540?mode=amp.Google Scholar

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197 See Müller, supra note 41, at 965 (on Ukraine, Moldova, Armenia, Azaerbaijan and Belarus); Popova, supra note 41 (on Ukraine); and Alexei Trochev, Patronal politics, judicial networks and collective judicial autonomy in post-Soviet Ukraine, 39 International Political Science Review 662 (2018), at 670-674.Google Scholar

198 Ibid., at 354. See also Solomon, supra note 41.Google Scholar

199 Çalı & Cunningham supra note 29.Google Scholar

200 See supra note 60.Google Scholar

201 Kosař, , supra note 9, at 390-398.Google Scholar

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203 Kosař, , supra note 9, at 390.Google Scholar

204 See Bobek e.g., supra note 35, at 253-254 (on Czechia); or Piana, supra note 37, at 43-44 (on Czechia, Hungary, Poland, Bulgaria and Romania); Solomon, supra note 41, at 354 (on Russia); Müller, supra note 41, at 965 (Ukraine, Moldova, Armenia, Azaerbaijan and Belarus); Schwartz & Sykiainen, supra note 36, in particular at 995-996, 1003, 1008-1009, 1012, 1018-1027 and 1031-1034 (on Russia); and, on Slovakia, Alexander Bröstl, At the Crossroads on the Way to an Independent Slovak Judiciary, In Systems of justice in transition: Central European experiences since 1989 (Přibáň, Jiří, Roberts, Pauline & Young, James eds., 2003) at 141, 143.Google Scholar

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206 See Riedel, supra note 185, at 69, 98-107; Seibert-Fohr, supra note 186, at 267, 271; Solomon, supra note 41; Levitt, supra note 82, at 197-198; and Seibert-Fohr, supra note 81, at 502 (these two authors suggest that judges who seek promotion may be tempted to adjust their decision-making according to the views of their court presidents).Google Scholar

207 Solomon, supra note 41, at 918.Google Scholar

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210 The term ranges from seven to ten years, depending on the tier of the Czech judiciary.Google Scholar

211 See e. g. Kosař, supra note 11; and Blisa, Papoušková & Urbániková, supra note 89.Google Scholar

212 This is a common practice (at least for apex courts) in Japan; see David S. Law, The Anatomy of a Conservative Court: Judicial Review in Japan, 87 Texas Law Review 1545 (2009).Google Scholar

213 See notes 1-17.Google Scholar

214 In fact, none of Wildhaber's successors (Jean-Paul Costa, Nicholas Bratza, Dean Spielmann, and Guido Raimundi) presided over the ECtHR for more than 5 years (and usually much less).Google Scholar

215 Note that Gil Carlos Rodríguez Iglesias held the office of the CJEU President for 9 years (1994-2003), Vassilios Skouris for 13 years (2003-2015), and Koen Lenaerts has been the CJEU's President since 2015.Google Scholar

216 This has happened in Czechia. See Kosař, supra note 11; and Blisa, Papoušková & Urbániková, supra note 89.Google Scholar

217 This seems to be the case in Slovakia. See Spáč, Śipulová & Urbániková, supra note 77.Google Scholar

218 See Spáč, Śipulová & Urbániková, supra note 77; and Kosař, supra note 9, at 254-264.Google Scholar

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226 See Part C.I.Google Scholar

227 See Benvenuti & Paris, supra note 89; Carlo Guarnieri & Patrizia Pederzoli, The Power of Judges: A Comparative Study of Courts and Democracy (2002), at 54-55; or Carlo Guarnieri, Judicial Independence in Europe: Threat or Resource for Democracy?, 49 Representation 347 (2013), at 348 (all on Italy); and Gutan, supra note 67; and lancu, supra note 67, at 594-596 (both on Romania).Google Scholar

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229 O'Brien, supra note 70. However, the proposed Judicial Council will be chaired by the Chief Justice and it is unlikely (at least in the short term) that the fairly consensual approach that has been taken by successive Chief Justices in relation to the Courts Service would not also be carried through into the operation of the Judicial Council.Google Scholar

230 Wittreck, supra note 92.Google Scholar

231 We are grateful for this insight to Julio Ríos-Figueroa.Google Scholar

232 Wittreck, supra note 92.Google Scholar

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234 See supra notes 22 and 244.Google Scholar

235 This makes the choice of their successors extremely difficult.Google Scholar

236 See Kosař, supra note 9, at 320-321, 327-329; and Spáč, Śipulová & Urbániková, supra note 77.Google Scholar

237 Chief Justice Roger Taney delivered the infamous majority opinion in Dred Scott v. Sandford (60 U.S. (19 How.) 393 (1857)), ruling that African Americans could not be considered citizens and that Congress could not prohibit slavery in the territories of the United States. For further details, see Don E. Fehrenbacher, The Dred Scott Case: Its Significance in American Law and Politics (2001).Google Scholar

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239 This is a standard practice in Austria, Germany and France (for Conseillers d'État). Google Scholar

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242 See Trochev, supra note 197, at 670-674.Google Scholar

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251 See notes 1-17.Google Scholar

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253 See Śledzińska-Simon 2018, supra note 4.Google Scholar

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