Efficient and Effective Access to Justice
Submitting Institution
University of LincolnUnit of Assessment
LawSummary Impact Type
LegalResearch Subject Area(s)
Law and Legal Studies: Law
Summary of the impact
The impact relates to research carried out by Professor John Peysner, and
subsequently with Dr Angus Nurse, into three linked areas of access to
justice: (a) the cost of litigation, in particular fixed fees, budgeting
and contingency fees; (b) the financing of claims, in particular
Contingency Legal Aid Funds and Third Party Financing; and (c) forms of
dispute resolution and redress. Litigation is of major importance in
underpinning civil society, and as a global business, and changes in the
costs and financing of it will potentially impact on all practising
lawyers. The research has had impact on practice developments, government
policy, and statutory and procedural rules of court, particularly in
connection with the influential Lord Justice Jackson's Review of
Litigation Costs(2009). The impact has been at a national and
international level.
Underpinning research
The underpinning research has been ongoing since 1996, with the elements
that are most relevant to this case study having taken place from 2006,
following Peysner's appointment at the University of Lincoln. The policy
objective of achieving predictable costs allied to access to justice has
been the central and consistent theme of Professor Peysner's research,
leading to outputs in the form of journal articles, contributions to
books, and advice to Government and other reviews (e.g. the Jackson
Review; Member of the Technical Board to the Law Society Clinical
Negligence Specialist Panel, 2011), policy makers and practitioners.
The research addresses the issue of access to justice through the
suppression of excessive litigation costs. This has several strands:
• predictable cost systems (fixed recoverable costs and budgeting);
• innovative financing systems; and
• appropriate/efficient dispute resolution.
(a) Predictable Cost Systems. This aspect of the research emerged
as a critical response to those elements of Lord Woolf's Access to
Justice proposals (1996) which were not immediately implemented.
Although the government gave effect to most of his findings by radically
altering civil procedure, it failed to implement his proposals in relation
to costs, in particular, fixing costs for low value cases and budgeting
for higher value cases. Peysner's research has continued to suggest that
these cost reforms need to be implemented, and also that conditional fees
should be replaced by contingency fees. For example, research into the
effect of delay in increasing costs (Peysner and Nurse's data analysis for
National Accident Helpline (2011)), and into court fees (through a
literature review for the Civil Justice Council (unpublished internal
document, 2011)), culminated in Peysner's interventions in the Jackson
Review (2009), following which all of these proposals were implemented in
the Legal Aid, Sentencing and Punishment of Offenders Act 2012 and court
rules.
(b) Innovative Financing Systems (i) Peysner was commissioned to
undertake desk research and empirical research (interviews) for the
Northern Ireland Legal Services Commission (2005-8) into the proposal for
a Contingency Legal Aid Fund to largely replace civil legal aid. This
included research into the operation of the Personal Injury Assessment
Board in the Republic of Ireland, and also involved advising officials and
the committee, including writing internal papers. The model proposed was
accepted by the Commission, but did not proceed owing to technical issues
with the role of the Accounting Officer and boundary issues between
Westminster and the Assembly government.
(ii) Peysner and Nurse, with Professor Hodges of the Centre for
Socio-Legal Centre, University of Oxford, carried out research into the
development and regulation of Third Party Funding for
commercial litigation funded by the global re-insurance company Swiss Re.
This involved semi-structured interviews with legal practitioners and
funders and desk research into bars to Third Party Funding including the
comparative context. The research established: that this model was more
widespread than had been believed; and that it was growing in scope and
could safely be self-regulated, unless and until it moved into the
consumer area.
(c) Appropriate and Efficient Dispute Resolution
(i) Research was commissioned in 2008 by the Department for Business,
Enterprise and Regulatory Reform (BERR) into the need for, and mechanisms
to achieve, satisfactory compensation for groups of consumers, where they
have suffered detriment. The research used qualitative and quantitative
methods. Structured questionnaires to trading standards/enforcement
officers were used to obtain quantitative data relating to the number of
consumer protection cases each year. Qualitative questions were also
designed to obtain views on restorative justice and representative actions
from enforcers, regulators and consumer groups. Interviews were carried
out with trading standards officers, other enforcers and regulators,
consumer groups and representatives, and some business representatives. A
BERR workshop on Restorative Justice was held at the Trading Standards
Institute Conference.
(ii) European consumers have been subject to particular detriment by
cartel and other anti-competitive activity without effective remedy.
Peysner's work has contributed to developing new initiatives of access to
justice in this area. Research was carried out with Professors Rodgers
(Strathclyde) and Riley (City University) into the impact of European
Commission proposals on the regulation of actions for breach of European
antitrust rules (i.e. Making antitrust damages actions more effective
in the EU: welfare impact and potential scenarios, Experts'
Report for Centre for European Policy Studies, Brussels, and the European
Commission (DG Comp)). This report was published alongside a Commission
White Paper on the issue: Brussels, 2.4.2008, COM (2008) 165 final
({SEC(2008) 404}{SEC(2008) 405} {SEC(2008) 406}). Peysner is also the
co-author of a forthcoming Arts and Humanities Research Council report on
these developments.
References to the research
1. Peysner, J. (2010) 'National Report' and 'Woolf for Slow Learners', in
Hodges, C., Vogenauer, S. and Tulibacka, M. (eds) The Costs and
Funding of Civil Litigation: A Comparative Perspective', Hart,
pp 289-302 and 313-326.
2. Peysner, J. (2009) 'Blot on the Landscape', in Dwyer, D. Civil
Procedural Rules Ten Years On, Oxford University Press, pp 157-170.
3. Peysner, J. (2008) 'Access to Justice in Multi-Party Actions', in
O'Dell, P. and Willett, C. (eds), Global Governance and the Quest for
Justice Volume III, Hart, pp 103-115.
4. Hodges, C., Peysner, J. and Nurse, A. (2012) Litigation Funding:
Status and Issues, Joint Report, University of Oxford (Centre for
Socio-Legal Studies) and University of Lincoln, available at
www.csls.ox.ac.uk/documents/ReportonLitigationFunding.pdf.
5.Peysner, J. and Nurse, A. (2008) Representative Actions and
Restorative Justice, BERR ITT, No.101/08.
6. Peysner, J. (2008) 'Referring to Justice', European Business Law
Review, Volume 19, pp 1105-1127.
7. Peysner, J. (2007) 'Follow the money: Money damage claims in
Northern Ireland', in Pleasence, P., Buck, A. and Balmer, N. J. (eds) Transforming
Lives: Law and Social Process, The Stationery Office, pp 161-185.
8. Peysner, J. and Riley, A. (2006) 'Damages in EC Antitrust Actions: Who
Pays the Piper?',European Law Review, Volume 31, pp 748-76.
Details of the impact
In terms of the range of the impact, as has been noted
above, dispute resolution is of major importance in underpinning civil
society and as a business. The rules relating to funding and costs of
litigation are important for access to justice, reduction in insurance
premiums (particularly in personal injury cases), and for the health of a
very large service industry. Over 1.5 million civil (non-family) cases
were started in 2011 (Ministry of Justice, Judicial and Court
statistics 2011 (published 2012)), and in 2012 the Law Society
reported that there were 128,778 practising solicitors in 10,102 firms.
All of these firms, and their clients, both UK based and international,
will be affected by changes in the ways in which cases are financed and
costs regulated. Five specific examples of the impact of the research
listed in 3 above are set out below.
i. 2009: Advice was given to Jackson LJ in a confidential meeting in
relation to his Review of Civil Litigation Costs, and Peysner also spoke
at meetings he attended. As indicated above, the Review proposed that
fixed fees, cost budgeting and a form of contingency fees should be
introduced (damage based agreements); the latter to replace recoverable
conditional fees which defendant insurers had to pay with the objective of
reducing motor and house insurance premiums. These are all policy
objectives that arise from Professor Peysner's research and his
conclusions on policy reforms required. These proposals have been
implemented in 2013 through the Legal Aid, Sentencing and Punishment of
Offenders Act 2012 (sections 44 to 47) and changes in rules of court.
ii. 2010/2013: Involvement in Jackson 'Review of Civil Litigation Costs'
(above) led to an invitation to speak at the Holyrood Policy Conference,
Edinburgh, offering an English perspective on the Report of the
Scottish Civil Courts Review ('The Gill Review'). Peysner debated
the issues with another speaker, Sheriff Taylor, a member of the Gill
Review. This led to Peysner's approach on referral fees being taken up by
the following government review: 'Review of Expenses and Funding of Civil
Litigation in Scotland' (Taylor Review) (11/9/2013) - eg Ch 10, para 48:
In 2008, John Peysner, Professor of Law at the University
of Lincoln, predicted the impact of a prohibition of referral fees once
alternative business structures had been permitted in England and Wales…
'Referral fees between lawyers and brokers or insurers will be replaced
by transfer pricing within vertically integrated organisations. If these
arrangements are outside regulation but the remaining firms surviving
outside the corporate umbrella remain subject to the full rigor of
discipline, it is difficult to see how this can be sustained'. In June
2012, the SRA [Solicitors Regulation Authority] addressed the
concern that businesses may become alternative business structures in
order to circumvent the ban. So long as the formal requirements for
authorisation are met, the SRA could see no grounds on which to prevent
such arrangements, even where they are made explicitly to circumvent the
ban. It could be said that Peysner's comment was prescient.
iii. 2008: Representative Actions and Restorative Justice (2008)
- this report was commissioned by the Department of Business Enterprise
and Regulatory Reform (BERR) and its successor department, the Department
for Business, Innovation and Skills, adopted the proposal put forward by
Peysner and Nurse in the BERR report for pilot enforcement trials, which
were then carried out. It also adopted and announced the Consumer Advocate
(the Consumer Ombudsman proposal), and advertised the post as Chair of
Consumer Focus with the education role first and the Ombudsman powers to
follow. The Law Commission's Consultation Paper on Consumer Redress for
Misrepresentation and Aggressive Practices (LCCP 199/SLCDP 149) makes
reference (page 47) to the BERR report in relation to compensation orders,
and (at page 51) in relation to the civil sanctions pilot.
iv. A report for the European Commission to which Peysner contributed, Making
antitrust damages actions more effective in the EU: welfare impact and
potential scenarios, (2007, available at
ec.europa.eu/competition/antitrust/actionsdamages/files_white_paper/impact_study.pdf)
was drawn on by the 2008 European Commission White Paper on Damages
Actions for Breach of the EC antitrust rule - see the impact statement
attached to the White Paper: Impact Assessment Report SEC(2008) 405,
2.4.2008.
v. In 2012 Peysner was invited to speak on developments in Third Party
Funding to The Geneva Association (the leading organisation of global
insurers/re-insurers) International Liability Regimes Conference in Paris.
This led to an interview with The Economist (On-Line) (www.economist.com/news/finance-and-economics/21575805-fat-returns-those-who-help-companies-take-legal-action-second-hand-suits)
in which Peysner's opinion that the research does not support fears that
such funding would encourage 'junk lawsuits' was quoted.
Sources to corroborate the impact
1. Jackson LJ's report: there are a number of separate references in the
report including: '…a very instructive article entitled "Predictability
and Budgeting" by Professor John Peysner…', 'Distinguished academic
lawyers. From time to time I have sought the views of distinguished
academic lawyers on specific issues. They include Professor Dame Hazel
Genn, Professor Michael Zander, Professor Adrian Zuckerman and Professor
John Peysner'. I am most grateful for their advice.' (pp 11, 217, 233 and
413 in Final Report, and others in Preliminary Reports)
2. Law Society Gazette, 11 March 2011 - 'National Accident
Helpline commissioned Professor Peysner, widely considered to be the
leading legal costs academic, to undertake the first study of its kind
into the link between defendant behaviour and civil litigation costs. His
conclusion is that defendant delay is too important to be ignored and must
become part of the debate for regulators and policy makers'.
3. Lord Justice Jackson speech: Third party funding -'2.4 Developments
between 2005 and 2009. The Court of Appeal's decision in Arkin brought
litigation funding into the main stream in England. The High Court's
majority decision in Campbell's Cash & Carry Pty Ltd v Fostif Pty
Ltd [2006] HCA 41 had a similar effect in Australia. The Civil
Justice Council ("CJC") took up the baton. In 2005 the CJC published its
report 'Improved Access to Justice - Funding Options and Proportionate
Costs' (authors M Napier, Judge P Hurst, R Musgrove, Prof Peysner).
This proposed that 'building on the judgment of the Court of Appeal in Arkin
further consideration should be given to the use of third party
funding as a last resort means of providing access to justice"',
www.judiciary.gov.uk/media/speeches/2011/lj-jackson-speech-third-party-funding-or-litigation-funding-23112011.
4. Mail on Sunday, 10 June 2012 - 'One of the few impartial
observers is Prof John Peysner, of the Lincoln Law School, who has studied
the insurance industry for years. He said: "Insurance companies have
driven referral fees, not greedy lawyers and fraudulent claims. The only
way to bring the system under control is to bring costs under control so
it is not possible to generate huge referral fees"'.
5. Guardian Unlimited, 28 May 2010, 'Legal insurance: will Britain
buy it?' - 'Professor John Peysner, head of law at Lincoln Law School,
points out there is a radically different litigation landscape in Germany,
not least because transactional legal costs are fixed. "The basic problem
is you can't inject BTE insurance into an environment where costs are so
uncertain", he says'.