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VII EW A K U LIŃ SK A

- M O N IK A O D LA N IC K A -PO C ZO B U TT - KATARZYNA W AR ZE C H A

A N A L Y S IS O F T H E M E T H O D U S E D F O R M E A S U R IN G E F F E C T IV E N E S S O F T H E C O U R T S IN P O L A N D

A C C O R D IN G T O T Y P E O F C A S E S

7 .1 . In t r o d u c t io n

A m ain problem of the Polish ju d iciary is the excessive length o f the proceed­

ings - som e procedures in com plicated cases last more than 10 years. This is evi­

denced by, am ong others, num erous ju d gm en ts o f the European Court o f Human Rights. The proposed changes, although they are a step in the righ t direction, seem to be insufficient. T h ey do not include the fact that the excessive length of proceed­

ings m ay have a m ulti-instance character, and m ay correspond to the various au­

thorities and courts.

T he reasons o f the search o f solutions in the common ju d icia ry in area of perform ance m easu rem en t is the accession o f Poland to the European Union, the necessity to conform to the European procedures and the pressure to reduce the prolixity o f the Polish ju stice in terms o f dealing w ith cases.

In the literature, in which the problem o f the exam ination o f the functioning o f organizations is discussed, there is no agreem ent to what are the essential crite­

ria o f perform ance (Cameron, 1981; Lewin, M inton, 1986), understood often as productivity (Kosieradzka, 2012). The exam ination should include the organization­

al activity in relation to num erous criteria, however, the perform ance o f an organi­

zation is frequ en tly only perceived as its effectiveness (Cameron, 1986; Hitt, 1988).

The m anagem en t o f contem porary organizations based on the paradigm of a constructive u n ity o f theory and practice is clearly connected w ith the functioning of the organization in the environm ent (Drucker, 2000). Perform ance m easurem ent is influenced by the organizational structures, w h ich are undergoing evolution from functional ones, characteristic o f the classic approach, to the process structures (Grajewski, 2003, 2007).

The purpose o f the article w as an analysis of the applied m ethod used for m easuring effectiveness o f the com m on courts in Poland in relation to the identified faultiness in the perform ance m easurem ent.

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7.2. T h e c o u r t s o f a p p e a ls , t e r r it o r ia l a n d d is t r ic t c o u r t s in P o la n d in to t a l a n d t h e ir e ffe c tiv e n e s s in t h e y e a r s 2 0 0 2 -2 0 1 4

In P o la n d , the c o u rts a r e d iv id e d in to co u rts: a p p e lla te , te rrito ria l a n d d is tric t. T h e r e a p p e a r a ls o s ig n ific a n t d iffe re n c e s in te r m s o f th e q u a lity o f p a r tic u la r a p p e a ls , in d is tr ic ts a n d territo rie s , n o t o n ly in th e r e s p e c t o f th e a re a s o f th e ir p ro p ertie s, b u t a ls o in te rm s o f th e n u m b e r o f in flo w in g ca se s, a n d th e s iz e o f th e c o u rt u n its.

N ow there is 11 courts o f appeal, 45 territorial and 321 district courts as the consequence o f this state (A n a liza..., 2010). The available statistics shows that in the case o f courts of appeal the difference in the size between the largest and the sm allest cou rt is 3,5- fold, in territorial courts it is alm ost 18-fold, an in the district courts it is 34-fold.

T he elem ent of the reform o f the Polish common ju d icia ry - reorganization of courts - is a trial o f balancing the netw orks o f courts. The balance in the network can be assured when there are no m ajor disproportions between the participating units. B ecau se o f the fact that an effective functioning o f netw orks o f courts m eets an essen tial social need, it should be pointed out that the access to ju stice ought to be equal in every district o f its activity. Such a presum ption has become a base for a w idely discu ssed adm inistrative liquidation of small courts (Odlanicka-Poczobutt, 2013). T h e data collected by the M inistry o f Justice (Petryna, 2012) and the analysis of the advantages and disadvantages o f thp organization o f the com m on ju diciary in Poland, presented in the report of the MCC group, (Siabe.,.,2012) points to the oc­

curring disproportions, where the m ost serious problem w as too sm all a number of the size o f courts, which had a particularly bad influence on the efficiency o f func­

tioning o f district courts.

In the courts are recorded fundam ental issues of divisions: criminal, civil, la­

bor law, social insurance and business law. As we can see from the data presented in Figure 7.1. the inflow o f cases indicates that the vast m ajority o f the inflow o f cases con cerns district courts (over 92%), and the rem aining courts accept only 7%

o f cases (territorial courts), and the courts o f appeal - 1%.

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Figure 7.1. The number o f pending cases (with rem ains from the previous pe ­ riod), and cases solved in the polish courts in 2014

Source: Own calculations based on {Data..., 2015).

1

COOO

1 4 0 0 0 12000

1 0 0 0 0

acoo oooo

4 0 0 0 2000

o

C1Z

( h * I n f l o w o f t l i » I n c o u r t « - I n t o t a l

L l n l o w y < tf-i« I n f l o w o f t h « c a n e « I n c o u r t s - I n t o t a l )

Figure 7.2. Inflow o f pending cases in the polish courts In period 2002-14 Source: Own calculations based on (D ata..., 2015).

The upward trend in the nu m ber o f inflowing cases is clearly visible in the surveyed period 2002-2014 (as it is illustrated in Figure 7.2.), w ith the exception o f 2014, w h ere there was a sligh t decline. In the audited period from one year the nu m ber o f pending cases increased an average of 505.1 thousand.

O n the basis o f the data contained in Figure 7.3. w e can see that m ost civil cases had inflowed into courts, from year to year an average to 438 61,00, (the trend function y * = 438.61 t + 3428.7 R2 = 0.95), follow ed by crim inal cases, on average every year 77.118,00 (the trend function y * = 77.12 t + 1942.5 R2 = 0.83).

C ourts in Poland - in total - w ere pending in 2014 16,780,000 cases, includ­

ing cases rem aining for con sideration from the previous y ea r (which accounted for approxim ately 5% decline in the num ber of cases com pared to the previous year

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(2013)), o f which 2,229,230 are cases rem ainder o f 2013 (representing 13% o f cases to settle).

The data contained in Figure 7.3. and 7.4. show that in 2014 the courts have had to settle m ost civil cases - 9,992,600 cases (o f which not settled with 1,394,600 cases, which accounted for abou t 14% of civil cases to settle).

Figure 7.3. Cases inflow ing to courts in total, according to the type o f cases in the years 2002 to 2014 - in the interest

Source: Own calculations based on (D ata..., 2015)

The dynam ics o f solving was lower than the growth o f inflow, w hich m an i­

fests itself in the effects o f an increase in the num ber o f un resolved cases.

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Figure 7.4. N um ber o f pending cases (w ith rem ains from the previous period), and cases settled in the polish courts in 2014 - in total

Source: Own calculations based on (D ata..., 2015.)

7 .3 . T h e k e y p e rfo r m a n c e in d ic a t o r s in t h e P o lis h ju d ic ia r y - T h e c o u r ts o f a p p e a ls , t e r r it o r ia l a n d d is t r ic t c o u r t s in P o la n d in t o t a l a n d t h e ir e ffe c t iv e n e s s in th e y e a r s 2 0 0 2 -2 0 1 4

In polish ju d icia ry the basic indicators o f ju dicial efficiency are:

- an indicator o f inflow control (Ic), - an indicator of residue (Ir).

The indicator o f inflow control (Ic), w hich is a reference o f settled cases to in­

flowing cases during the reporting period is shown in Figures 7.5-7.9, depen din g on the type o f court and type o f case.

Indicator o f residues (Ir) - duration o f the proceedings cases in total (in m onths) (see Figure 7.10-7.14) - is the average duration o f proceedings o f all cases in the next reporting period com pared to the average m onthly inflow o f all cases in the reporting period.

The indicator o f inflow control (for polish courts in total) in 2014 com pared to 2013 has im proved and am ounted to 101.4. T h at m eans that settled an average of 101.4 cases per hundred inflow ing into the court. In 2013, the indicator o f inflow control reached 96.1.

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Figure 7.5. The in dicator o f inflow control o f crim inal cases according to the kind o f court in the years 2002 to 2014

Source: Own calculations based on (D ata..., 2015).

Figure 7.6. The in dicator o f inflow control o f civil cases according to the kind o f court in the years 2002 to 2014

Source: Own calculations based on (D ata..., 2015).

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tnH 125 120

115 110

105 100 95 90 85 80

2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014

- ♦ The In d ic a to r o f Ir flo w c o n tro l o f la b o r la w cases according to the Kind o f c o u rt • aapea's

■ The in d ic a to r o f ir f lo w co n tro l o l la b o r la w cases a ccording to th e kin d o f c o u rt * te r r ito r ia l

a- The In d ic a to r o f I r f lo w c o n tro l o f la b o r la w cases a ccording to th e kin d o f c o u rt • d is tric t

Figure 7.7. The indicator of inflow control o f labor law cases according to the kind o f court in the years 2002 to 2014

Source: Own calculations based on {D ata..., 2015).

145 135 125 115 105 95 85 75 65 55

2002 2003 2004 2005 2006 2D07 2008 2009 2010 2011 2012 2013 2014

♦ — The Indicator of inflow €001-0! of social Insurance law cases according to the kind o f court • appeals

— • — The In d ic a to r o f in flo w c u n t o l o f social in su ra n ce la w cases according to th e k in d o f c o u r t * te rr ito r ia l

— Mr The indicator of Inflow control o f social Insurance law cases according to the kind o f court * district

Figure 7.8. The indicator o f inflow control o f social insurance law cases ac­

cording to the kind o f court in the years 2002 to 2014 Source: Own calculations based on {D ata..., 2015).

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Figure 7.9. The indicator o f in flow control o f econom ic cases according to the kind o f co urt in the years 2002 to 2014

Source: O w n calculations based on (D a ta ..., 2015).

I n d ir a to r o f residue ( in m onth*:) f o r crim in a l rasp*; a ccording t o th e c o u rt - appeals

f — In dica tor o f residue ( In m o n th s ) f o r crim in a l cases accncding to th e c o u rt - te rrito ria l

— A - In d ica to r o f residue ( lo m o n th s ) f o r crim in a l cases a ccording t o th e c o u rt - d is tric t

Figure 7.10. Indicator o f residue (duration o f the proceedin gs In months) for crim in al cases according to the court in the years 2002 -20 14

Source: O w n calculations based on (D ata..., 2015).

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— ♦ — I n d ic a t o r o f r e s id u e ( In m o n th s ) f o r c iv il ca s e s a c c o r d in g t o t h e c o u r t - a p p e a ls

— ■ — in d i c a t o r o f r e s id u e ( in m o n th s ) f o r c iv il ca s e s a c c o r d in g t o t h e c o u r t - t e r r i t o r i a l

— A - I n d ic a t o r o f r e s id u e ( in m o n th s ) f o r c iv il c a s e s a c c o r d in g t o t h e c o u r t - d is t r ic t

Figure 7.11. Indicator o f residue (duration o f the proceedings in m onths) for civil cases according to the court in the years 2002-2014

Source: O w n calculations based on [D ata..., 2015).

■ ♦ ■ Indicator o f residue ( in m onths) fo r la b o r la w cases according to the co u rt - appeals

— ■ — Indicator o f residup ( in m onths) fo r la b o r law cases according to th e co u rt - te rrito ria l

j t - Indicator o f residue (In m onths) fo r la b o r law cases according to the co u rt - d istrict

Figure 7.12. Indicator o f residue (duration o f the proceedings in m onths) for labor law cases according to the court in the years 2002-2014

Source: Own calculations based on [D ata..., 2015).

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F igure 7.13. Indicator o f residu e (duration o f the proceedings in m onths) for s o c ia l insurance law cases according to the court in the years 2002-2014 Source: Own calculations based on (Data..., 2015).

Figure 7.14. Indicator o f residue (duration o f the proceedings in m onths) for bu sin ess law cases according to the court in the years 2002-2014

Source: Own calculations based on (Data..., 2015).

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7 .4 . D is a d v a n t a g e s o f th e a p p lie d m e a s u r e m e n t s y s t e m

The m easu rem ent system used in the polish ju diciary provide inform ation only about the present level o f dealing with cases, and are not used in controlling or planning. The statistics describes a past perform ance, w h ich allow s for reacting on­

ly on the basis o f historic presenting of the data. The indicators show solely w hat cases have been dealt with and on w hat date, bu t there does not exist an indicator defining which periods are connected with the prolixity (is it a rem aining case from the year before, or from two or m ore years before) and w hat cases are presently in progress. The program s to increase productivity o f courts have led to the fact that the output efficiency m easures Eire very em phasized. This has further led to inap­

propriate m easu rem ent o f output quantity and efficiency w ithout understanding and analyzing the causal effects on other aspects o f the organization’s perform ance.

The m ost serious disadvantage o f the m easurem ent system applied to the Polish com m on ju d iciary is the lack o f taking into consideration the tim e of the realization o f the processes.

The defective inform ation that the m easu res give on process perform ance a l­

so m akes it m ore difficult to com prehend the causal relationship between perfor­

m ance and m easures. There is a clear need that this concept o f quality is broad­

ened to include the lead-tim e as a m ajor and im portant aspect o f quality and the recipient’s satisfaction. A good suggestion to im prove the process perform ance m easurem ent system w as form ed on the basis o f the findings in literature (Pek- kanen, Niemi, 2012).

The only solution aim ing at directing the m easurem ent to the processes has been the m easurem ent o f the workload of the secretariats o f particular court de­

partm ents, which should enable an equal distribution of the clerical staff between the departm ents, depending on the num ber o f responsibilities (Odlanicka- Poczobutt, 2013), developed by W. Hajduk, president o f the Territorial C ourt in G li­

w ice o f the previous term , presently the Deputy M inister o f Justice (Hajduk, 2011).

The sesirch for the possibility to create a system o f m easuring the standards o f operating in the com m on ju d icia ry is real necessity. T he processes and opera­

tions in courts are usu ally com plex and abstract, and em ploying sim plified indica­

tors defining the fined results distorts the m easurem ent.

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7 .5. C o n c lu s io n s

The analysis o f the inflow o f cases o f different categories to the courts o f par­

ticular levels allow s for the conclusion that the process o f equalizing the distribu­

tion of the inflow o f cases to particular courts needs search for th e possibility to create a system o f m easuring the standards o f operating in the com m on ju diciary is connected with m ajor difficulties and still rem ains undone. The com plex and ab­

stract processes and operations in courts can ’t be described by sim plified indicators defining only the final results, because it distorts the m easurem ent. The m etrics used in the ju d icia ry are not used in controlling or planning. Past perform ance de­

scribed by the statistics doesn’t show w h ich periods are connected w ith the prolixity (is it a rem aining case from the year before, or from two or m ore yea rs before).

The faultiness o f the applied m ethod causes the transm ission of a falsified im age o f the results o f the cou rts’ activity and an increasing dissatisfac­

tion o f the society. T h e basis of the effective w ork of courts should be a properly conducted analysis and measurement, w hich is supposed to constitute an elem ent of the m otivation to enhance efforts in term s o f im proving the activity.

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