Trust in institutions is under pressure across OECD countries, as many people question their fairness, accessibility, and ability to respond effectively to citizens’ needs. People increasingly expect institutions to deliver not only fair rules but also user-friendly services and fair outcomes. This report argues for a more responsive rule of law, delivered through people-centred justice systems, capable of addressing everyday problems, offering tailored and user-friendly pathways to resolve them, and tracking results in people’s lives. The report explores how the rule of law can evolve to meet today’s expectations and tomorrow’s challenges. It makes the case for people-centred justice as the operational route to a responsive rule of law, to ensure that justice systems are legally sound and socially relevant: systems designed around people’s needs and capabilities, based on evidence and accountable for outcomes – so that trust is rebuilt, and societies can move forward together.
Making Justice Systems More Effective and People Centred
Abstract
While the rule of law remains a hallmark of well-functioning societies and resilient economies, people’s lived experiences with public institutions often tell a more complex story. While sound justice systems are how the rule of law is delivered, in many cases, they are not keeping pace with societal change. As a consequence, without effective, accessible justice, a growing number of people feel that the protections, rights and opportunities that the rule of law is meant to guarantee are out of their reach.
Empirical evidence shows a global rule of law recession that began in 2016 and continues today, with worsening access to civil justice and a growing justice gap among its key drivers (World Justice Project, 2025[1]). These affect millions of people who are unable to resolve everyday justice problems that affect their rights, relationships and livelihoods, from debts, divorce, unfair dismissal, eviction to denial of public services. When justice institutions fail to address these issues fairly and effectively, individuals are left with festering grievances, lost productivity and damaged relationships. The consequences extend beyond the individual: Unresolved justice problems affect the social fabric and the economic vitality of our societies and undermine trust in public institutions.
The current environment presents both a challenge and an opportunity. It is a moment to reaffirm foundational principles of the rule of law, equality before the law, legal certainty, and accountability, while rethinking how these principles are implemented in practice. Strengthening the rule of law is not only a matter of constitutional design or judicial independence, essential as those are. It requires making justice systems more effective at resolving the problems that people face, in ways that are fair, accessible and timely. Making justice systems more people centred, and enabling people and businesses to achieve fair outcomes will be essential to ensure that the rule of law is fit for purpose and responsive to the needs of society and the economy.
A significant concern, connected with and contributing to decreasing levels of public trust, is the broader decline in the rule of law (OECD, 2024[2]) (Simpson, 2024[3]). Based on empirical research in 142 countries and jurisdictions, the World Justice Project has highlighted a global rule of law recession which began in 2016 and continues to this day. The Rule of Law Index 2025 revealed that between 2024 and 2025, the rule of law weakened in 96 countries and improved in 46 (World Justice Project, 2025[1]).
Worsening access to civil justice and the global justice gap serve as among key factors behind this trend (World Justice Project, 2019[4]); (World Justice Project, 2025[1]). People in countries experiencing declining rule of law face longer delays in resolving their problems and less effective dispute resolution (World Justice Project, 2025[1]). Justice systems, like all public institutions, struggle to keep pace with rapid societal change and the evolution of public expectations.
The global justice gap has emerged as an important challenge to the rule of law and an urgent concern for governments in recent years (Task Force on Justice, 2019[5]). Survey data consistently shows that people regularly encounter justice problems, whether these relate to divorce, debts, labour disputes, access to public services, consumer issues or other disputes. Yet around half of these problems are never resolved (World Justice Project, 2019[4]). Of the 1.5 billion people around the world who have unresolved criminal, civil, or administrative justice problems, around 600 million live in OECD member states (OECD, 2022[6]). Given that 19% or almost one in five of the most common justice problems that people face are related to access to public services, people’s inability to resolve these issues can lead to exclusion from services or benefits that they may be entitled to and complicate the realisation of their rights (Task Force on Justice, 2019[5]).
This justice gap partly relates to the ineffectiveness of the current functioning of justice institutions in responding to people’s legal needs and justice problems. Indeed, in many countries, courts are often seen as out of reach for most income groups and the justice services they provide can address a relatively small portion of justice problems (Farrow and Jacobs, 2020[7]). Their procedures are often considered too complex, too expensive, and too adversarial to resolve the majority of justice problems. Lawyers are seen as expensive, making it challenging for an ever-increasing share of the population to seek their advice (Farrow and Jacobs, 2020[7]). This situation is further aggravated by budget cuts for legal aid and other justice services in many OECD countries, as well as for subsidies for civil society and grassroots justice providers (Byrom, 2024[8]). Indeed, the data shows that two-thirds of countries have experienced declines in the quality of civil justice in recent years, with delays growing longer, enforcement weaker, and access to effective problem resolution and affordability declining. Nearly half of countries also saw declines in the quality of criminal justice in recent years (World Justice Project, 2025[1]).
This justice gap is of immediate concern to governments, since it can undermine financial stability, jeopardise prosperity, contribute to poor mental and physical health, damage social and economic relationships, and decrease security (OECD, 2019[9]) (Capp and Dandurand, 2024[10]) (World Justice Project, 2019[11]). The OECD has estimated the cumulative cost of unresolved justice problems at 0.5–3% of a country’s GDP (OECD, World Justice Project, 2019[12]). Vulnerable populations are disproportionately affected, not only because they are more likely to experience justice problems, but also because they are less likely to resolve them, thereby compounding existing inequalities (OECD, 2019[9]). Crucially, a wide justice gap can result in rights not being effective and duties not complied with, so the rule of law is not implemented in practice. Without fair, timely, and accessible justice, efforts to enhance dignity, prosperity, and security for all cannot be fully realised - and the credibility of the rule of law weakens.
When the justice gap reaches a tipping point, the legitimacy of the legal order itself may be at risk. For small businesses and individuals alike, the challenges in accessing justice can impact their ability to thrive. When everyday agreements such as simple contracts can no longer be enforced, the foundations of the economy begin to erode (OECD, World Justice Project, 2019[12]). This contributes to an already-growing feeling that democracy is not working for everyone (OECD, 2024[2]) and that the economy is rigged to the disadvantage of ordinary people (Cramer, 2024[13]), thus adding to rising distrust and affecting broader societal relations. In effect, unresolved problems lead to non-enforcement of rights, lower compliance and thus weakened legitimacy. Closing the justice gap is therefore essential to advance the rule of law.
The rule of law is usually invoked as a normative ideal and it has no single definition. The concept occurs in different countries, (governance) cultures and languages. Although rule of law, état de droit (French), and rechtsstaat (German/Dutch) come from different legal traditions, they share the idea that governments are responsible for maintaining a justice system that protects rights, ensures accountability and fairness, and provides access to justice for all.
International efforts to define the rule of law have proven cumbersome and non-conclusive. Definitions or descriptions have been proposed, amongst others, by the UN, the EU, the Council of Europe, the OSCE, the OECD-DAC, and others (Venice Commission, 2011[14]). These definitions generally focus on institutions, are defined by the legal profession, and consist of many different components.
Legal scholarship has developed the distinction between ‘thick’ and ‘thin’ conception of the rule of law, in which the thin, or formalistic, understanding of the rule of law focuses only on procedural requirements, while the thick, or substantive, understanding of the rule of law considers substantive justice, fairness of outcomes and respect for fundamental rights, as an integral part of its definition.
The World Justice Project publishes an annual Rule of Law Index for which it has operationalized the concept. The index measures the rule of law across eight dimensions: Limited government powers; Absence of corruption; Order and security; Fundamental rights; Open government; Regulatory enforcement; Access to civil justice; and Effective criminal justice (Botero and Ponce, 2011[15])
Recent approaches, including for example by the Netherlands State Commission on the Rule of Law, focus on the promise of the rule of law to provide protection, to enable participation and to ensure fairness in society and the economy (Staatscommissie Rechstaat, 2024[16]).
This report will not propose (yet) another definition but focus on understanding the rule of law as it operates in society as an ideal, what it means in people’s lives and what countries can do to make it more responsive and meaningful – through more effective and people centred justice systems.
Rule of law for prosperity and growth
The OECD has long recognised the importance of the rule of law for market confidence and sustainable economic growth. The founding of the OECD was part of the rules-based international order built around ‘the need to build healthy and open market economies and protect economic freedoms, the rule of law, and the promotion of human rights’ (OECD, 2022[6]). While causality remains under debate, there is a clear correlation between rule of law performance and income levels: low-income countries consistently score lower on rule of law measures (World Justice Project, 2025[1]). Economists highlight the importance of the rule of law in reducing transaction costs, protecting property rights, and promoting growth (Dam, 2006[17]). Crucially, the rule of law affects prosperity through its delivery system: justice institutions that enforce rights and contracts, resolve disputes and conflicts, and ensure compliance.
As countries pursue growth and competitiveness, demand rises for justice systems that are effective, predictable, and accessible. A sound and effective justice system supports ease of business operations and provides a fair and predictable business environment, crucial conditions for businesses to thrive and contribute to economic growth. Access to justice is the practical pathway: when people and firms can resolve problems quickly, at proportionate cost, and with enforceable outcomes, the rule of law becomes economically meaningful. To ensure long-term competitiveness meanwhile, legal and institutional frameworks should not only uphold market integrity but also address the social dimensions of growth. A responsive rule of law, supported by a people-centred justice system, underpins environments where economic performance and individual well-being are mutually reinforcing.
Supporting economic growth and enabling different groups to share the benefits of growth are aspects of public governance that can improve outcomes for people and help build trust in institutions. Economic insecurity and inequality are defining challenges of our time. Over the past three decades, income inequality has risen, and social mobility has stagnated in many countries (OECD, 2021[18]). Across OECD countries, there are high levels of support for policies to improve prosperity and economic security. A large majority of those surveyed across the OECD felt that their countries should prioritise providing equal opportunities for all (82%) and creating conditions for business to thrive (81%) (OECD, 2025[19]). Justice systems contribute to both goals by lowering the time, cost, and uncertainty of resolving disputes and accessing entitlements, which broadens participation in growth.
Small and medium-sized enterprises (SMEs) play a central role in this vision, as they make up more than 90% of businesses in OECD countries. For SMEs to contribute to economic growth, there must be enabling environments for prosperity, including avoiding unnecessary regulatory burdens and ensuring rules, regulations, and contracts can be fairly and reliably enforced (OECD, 2025[19]). When they run into a problem, with a supplier, a client, an employee or the authorities, they need access to speedy and effective services. Where access to justice is weak, enforcement is slow or costly, and perceived bias rises, risk premiums rise and investment is deterred. When trust in the rule of law is weak, and legal frameworks are perceived as inaccessible or biased, SMEs face heightened challenges in growing and competing.
Moreover, regulatory processes and administrative procedures disproportionately impact SMEs, which have less capacity to screen the regulatory landscape and allocate the necessary resources to address legal and regulatory requirements (OECD, 2025[20]). Effective justice services, including administrative justice and low-friction redress, reduce compliance costs, clarify obligations, and keep transactions moving, leading to stronger SME competitiveness and aggregate productivity.
SMEs and Access to Justice
Systemic disadvantage: SMEs lack the financial and legal resources that larger firms can mobilise, making disputes more disruptive.
Mismatch of services and needs: Justice systems are often designed for large corporations or individuals, leaving SMEs without appropriate procedures or affordable dispute resolution options.
Economic consequences: Unresolved justice problems lead to financial losses, supply chain disruptions, damaged business relationships, and in some cases business closures.
Digital lag: Justice systems and SMEs underutilise digital solutions, limiting efficiency and leaving processes fragmented.
Policy priorities
Adopt a user-centric approach: Design justice services around SMEs’ realities—clear, intuitive, and affordable—rather than expecting SMEs to adapt to complexity.
Promote alternative and digital dispute resolution: Expand access to mediation, arbitration, and online dispute resolution, supported by awareness campaigns, regulatory backing, and integration into both public and private legal services.
Simplify and reduce costs: Streamline procedures, cut administrative burdens, and introduce SME-focused legal aid programmes so that engaging with the justice system is proportionate to their size and resources.
Invest in digital justice infrastructure: Develop user-friendly digital platforms (e.g. ODR, e-registries, automated compliance tools) that integrate seamlessly into SMEs’ operations and make processes faster and more efficient.
Apply the “Think Small First” principle: Evaluate legal and regulatory reforms through an SME lens to ensure policies do not unintentionally disadvantage smaller businesses.
Target support: Provide tailored resources and protections to small businesses, start-ups, and microenterprises, ensuring reforms reach those most at risk.
Leverage partnerships: Encourage public-private collaboration to extend outreach and ensure SMEs across sectors and regions have practical access to affordable justice services.
Source: OECD (2025), Supporting businesses through better justice systems: A focus on SMEs and entrepreneurship.
Rule of law and public governance
Effective public governance depends on a responsive rule of law delivered through people-centred justice systems. The rule of law sets norms for legality, equality, accountability, and predictability; a responsive rule of law makes these principles usable in changing contexts by ensuring access, timeliness, and proportionate resolution. This responsiveness is operationalised through people-centred justice systems, with accessible and tailored services, data collection and outcome measurement. It helps translate the rule of law into real impacts by reducing time, cost, and uncertainty, improving compliance, and strengthening trust—driving better services and results for dignity, security, and prosperity.
Trust, fairness, and institutional legitimacy
The need for a responsive rule of law takes shape against a backdrop of shifting public sentiment and institutional pressures. According to the 2024 OECD Survey on Drivers of Trust in Public Institutions, fewer than four in ten people across OECD countries report high or moderately high trust in their national governments, while 44% express low or no trust (OECD, 2024[2]). While higher than the levels of trust for other public institutions, only slightly over half of citizens (54%) in OECD Member countries have trust in the justice system. Trust is closely linked to perceived inclusion in decision-making and whether institutions are seen as fair and respectful. Only four in ten respondents expressed confidence that public officials would treat rich and poor people equally - a figure that dropped to just one in three among the economically vulnerable (OECD, 2024[2]). These perceptions underscore the importance of fairness and responsiveness, which are key elements in the OECD framework on the drivers of trust. Maintaining trust in institutions requires constant investment in their reliability, responsiveness, integrity, fairness, and openness (OECD, 2024[2]). Effective justice systems operationalise these rule of law drivers by resolving problems early and fairly, ensuring equal treatment, and providing predictable outcomes.
The OECD’s Reinforcing Democracy Initiative has brought these realities into sharper focus by identifying the need to renew public governance and build institutions that can deliver fair outcomes (OECD, 2024[21]). Ministries of justice have a particular responsibility, as justice systems implement rule of law in practice and are fundamental to this renewal. Repeated perceptions of impunity, lack of redress for historical injustices, and unequal treatment reinforce the belief that the rule of law does not benefit all. The rule of law should provide a stable foundation for fairness and opportunity. When justice systems fall short, they not only frustrate those seeking resolution but also erode belief in the legitimacy of public institutions. Thus, closing the justice gap is a governance reform that restores the credibility of the rule of law and legitimacy of public institutions.
Importantly, public expectations about the role of public institutions and services, including justice, have evolved, requiring public entities to adapt, and institutions struggle to keep up. People today expect user-friendly and human-centred services and fair outcomes. They expect institutions to put them at the centre, engage with them, to reflect their realities, and to adapt when society changes. In other words, they expect systems that are responsive and can anticipate their needs - not only procedurally, but substantively. In this context, people-centred justice helps translate rule of law principles into usable pathways that meet these expectations.
To deliver relevant and effective solutions to people’s justice problems at scale, the justice system needs to be organised as a coherent and well-coordinated ecosystem of service providers. Until it does, the number of unresolved justice problems that people face is likely to increase, which could amplify the experience that systems do not work for everyone. This in turn provides fertile ground for disenchantment and grievances, which threaten people’s sense of belonging and their trust in public institutions. In turn, justice system levers, such as coherent pathways and tailored dispute resolution can support timely and consistent outcomes of the rule of law that help stabilise trust.
Promoting the rule of law therefore is not just a matter of constitutional design or judicial independence, essential as those are. It requires making justice systems more effective at resolving the problems that people face, in ways that are fair, accessible and timely. This way, countries can better align justice systems with the requirements and expectations of individuals in modern societies.
Dignity, security, and prosperity
The 2025 edition of Government at a Glance highlights three foundational pillars: dignity, security, and prosperity (OECD, 2025[19]). In many OECD countries, people’s sense of security and dignity in relation to public institutions is under strain. Survey data shows that relatively few citizens believe they have influence over government decisions, or that public authorities consistently act in the common interest, pointing to gaps in dignity (OECD, 2025[19]). At the same time, security concerns are shifting and prosperity remains unevenly distributed, affecting people’s confidence in the future. Effective access to justice enables rule of law promises (dignity, security, prosperity) to materialise for people and businesses.
Dignity – understood as the extent to which governments treat citizens with respect, ensure their voices are heard, and act in the public interest – provides a valuable lens for examining the performance of justice systems and the credibility of the rule of law (OECD, 2025[19]). When justice problems remain unresolved, they can significantly affect individuals’ economic and social well-being, fuelling stress, financial strain and weakened community ties. These experiences, in turn, shape how people view the responsiveness and fairness of institutions. Dignity in this sense is not an abstract principle but is grounded in people’s daily interactions with justice institutions and their ability to secure fair outcomes. Rebuilding the relationship between people and public institutions thus requires the creation of a virtuous circle, where dignity is both a starting point and an outcome of effective governance, and where effective and respectful support to resolve justice problems contributes to the credibility of the rule of law.
Security and prosperity in turn require legal certainty and predictability, important principles of the rule of law. This certainty and predictability are critical to one of the core functions of the rule of law: to provide a well-organised background structure for economic and social activities that inspires collective security and trust (Tamanaha, 2004[22]). Overall, justice systems have a strong role to play in creating this certainty by enforcing rights and contracts and by providing clear, timely routes to redress. However, increasing complexity of the law, the economy, and society has made the outcomes of legal conflicts and court procedures ever more difficult to predict and made it more difficult for all sections of society to access justice. The amount of specialised knowledge required to navigate the law is growing, and with it the costs of legal advice. The unpredictability of outcomes creates legal uncertainty that most people and certainly most businesses want to avoid. This uncertainty may lead many to stay away from official legal procedures. Simplification both at the level of the law and procedures and at all points where people interact directly with justice actors can help counter this trend.
Addressing public governance challenges
A characteristic of our 21st century societies and institutions is the ever-increasing complexity of systems, law, and procedures. Yet trust in national government is highly correlated to the availability of information about administrative processes (OECD, 2024[2]). The OECD Trust Survey demonstrates that on average 51% of the people who find information about administrative processes easily available, have trust in their national government, while only 22% of those who find that information is not easily available have this trust (OECD, 2024[2]). As our societies, systems and processes grow ever more complex, this imposes a large burden on the public sector in general and justice actors in particular to make information easily available and comprehensible.
The need for more responsive governance and more effective and appropriate public service delivery requires our understanding of legality to mature. Legality, the requirement that government action is based on and conforms to the law, is an important principle of the rule of law. However, the application of the notion of legality can lead to rigidity, a lack of service orientation and insufficient responsiveness on the part of the authorities in their interaction with citizens and small businesses. People’s lives are complex and their problems often interconnected, and the requirements of government systems may not take into account individual circumstances. People may interact with a large number of public services, institutions and officials, to access public services related to debt management, social housing facilities, financial support to low-income families, and support or protection of children. This system-world has its own logic which can create clashes with the everyday-life world of citizens (De Langen, 2022[23]). The principle of legality may be invoked to reject tailored solutions, even when tailored solutions are what is needed to solve a problem. As a result, people may encounter the rule of law as an obstacle to a more relevant response and a fairer outcome. People-centred justice can help reconcile legality with service orientation by allowing proportionate, tailored solutions within certain boundaries and oversight.
The rule of law principle of equality before the law and uniformity in the application of the law has very practical implications. Justice systems typically offer standardised services designed for highly educated individuals, while in most OECD countries, between 10% and 20% of adults are functionally illiterate (World Health Organisation, 2011[24]). Global data indicates that 16% of the world’s population, or an estimated 1.3 billion people experience significant disability, which impacts their interactions with justice providers, and requires accommodation to enable equal access (World Health Organisation, 2011[24]). Lastly an estimated 12.5% of the adult population has mental health problems (World Health Organisation, 2022[25]), which may also require adaptations from justice service providers. Standardised justice services need to be tailored to the diversity of needs and legal capability. Providing justice services to people in all their diversity, means accommodation has to be made to ensure equal access and fair outcomes.
As such, people-centred justice systems can help close the justice gap, by resolving disputes and making rights meaningful, which in turn can improve public governance outcomes—higher trust, better compliance, and more inclusive prosperity. It can foster inclusion, reduce inequality, and contribute to more cohesive communities, which in turn can help restore a sense of dignity and security to marginalised or excluded groups.
The current context offers a challenge but also an opportunity. This is a moment to reaffirm the rule of law’s foundational principles, namely equality, certainty, and accountability, while rethinking how they are applied. Strengthening the rule of law means making justice systems more effective, timely, and fair. By placing people, not procedures, at the centre, justice systems can become more effective and people-centred and support a responsive rule of law.
The OECD’s 2023 Recommendation on Access to Justice and People-Centred Justice Systems (the 2023 Recommendation thereafter) provides a framework for transformation. Building on a decade of pioneering work, the 2023 Recommendation, emphasises the importance of the rule of law, highlights the role of access to justice for all as a fundamental underpinning of democracy, and stresses the need for more responsive justice systems that contribute to foster trust in public institutions and strengthen democratic governance models.
The OECD Recommendation on Access to Justice and People-Centred Justice Systems was adopted by the OECD Council in 2023 and adhered to by all OECD Member Countries. The European Union adhered to the Recommendation in May 2024.
The Recommendation understands access to justice as the ability of people, businesses and communities to prevent and resolve their justice problems. Key components of people-centred justice are: building a people-centred purpose and culture in the justice system; designing and delivering people-centred justice services; establishing an enabling governance infrastructure; empowering people to be informed and to participate; and committing to evidence-based planning monitoring and evaluation (OECD, 2019[9]).
Source: (OECD, 2019[9]).
What do people expect from the rule of law?
The rule of law ensures that power - whether political, economic, or institutional - is exercised within a framework of accountability, equality before the law, and respect for individual rights. It constrains arbitrary actions and reinforces democratic norms by holding all people, regardless of status and role, to the same standards. An effective and credible justice system is central to delivering on these principles. Maintaining a careful balance between independence and accountability, particularly in moments when unwritten political norms may be eroding, is essential to safeguarding the rule of law.
However, calls to advance the rule of law must go beyond rhetoric. Without addressing the social and economic grievances that drive public disillusionment, such efforts risk being ineffective. The justice system bears a primary, though not exclusive, responsibility in translating the ideals of the rule of law into lived realities. To do so, it needs to undergo institutional transformation that aligns with people’s evolving experiences, expectations, and needs. Defining what the rule of law should achieve in practice - and designing justice systems that are equipped for the future - are necessary steps in restoring trust and legitimacy.
The rule of law is not merely a legal construct; it is a societal commitment to fairness, accountability, and participation. It reflects how individuals relate to each other and to public institutions. This commitment only holds when all people, regardless of background or circumstance, have equal and effective access to justice and are able to resolve justice problems that they face fairly and effectively. When justice remains out of reach - when individuals cannot resolve disputes or access services - the promise of the rule of law rings hollow. Such gaps erode trust in institutions and undermine social cohesion.
Delivering on the promise of the rule of law thus requires institutions that are effective, responsive, and grounded in the realities of people’s lives. This involves understanding how justice systems are experienced by people and ensuring that legal frameworks do not simply protect the status quo but actively contribute to fairer outcomes. The question is what kind of rule of law people want in the future, what type of institutions are needed to uphold it, and what the rule of law’s primary role should look like.
To rebuild a productive relationship between people and institutions, public institutions must embody a rule of law that is responsive. As the core sector charged with delivering justice and fairness, the justice system should function as the beating heart of the rule of law – working across government and society to ensure that the principles of people-centred justice permeate. This means ensuring that everyone can resolve their justice problems, that power is exercised within legal bounds, and that states are equipped to confront global challenges within a rule-based framework.
Ultimately, the rule of law is about right, not might. Responsive rule of law gives practical meaning to the principle of equality before the law. A justice system that enables this principle to be realised in practice is essential to restoring security, enhancing peoples’ sense of dignity, and helping households and individuals achieve prosperity.
No single actor is responsible for justice and the rule of law. In the justice system alone, there are ministries of justice, (councils of) the judiciary, prosecutors, lawyers, legal aid providers, community and frontline justice providers, legal insurance companies, socio-legal counsellors, advice centres or service desks, ombuds institutes and other complaints and oversight mechanisms, and many more. Moreover, since justice and the rule of law touch upon every area of life, many issues will require whole-of-government and whole-of-society approaches.
Justice systems of the future need to shape a responsive rule of law that ensures equal access to justice for all. This report is organised around the following strategies to deliver a more responsive rule of law:
Leading the transformation of the justice system (chapter 2): Visionary and ambitious leadership will be needed in order to make justice systems people-centred. Such a shift requires changes in values and mindsets as well as practices. Those working in the justice system need to review their purpose and adopt an approach that puts people’s needs at the centre, with services and relationships designed to meet those needs. Justice processes and services would need to focus on legal needs and justice problems people face, and need to become more outward-looking, embracing different actors in delivering justice. Engaging other parts of government will be important – legal needs and justice problems are often related to needs in areas such as healthcare, housing, labour relations or education, and holistic approaches through collaboration with relevant systems is more likely to deliver people an effective response to their problems.
Strengthening legal empowerment and preventing justice problems (chapter 3): A functioning government and the rule of law require empowered citizens and communities, who are able to participate fully in society and in political arenas and have a fair chance in the economy. The existence of a vibrant society and economy, where all sorts of groups, alliances, movements, networks, social enterprises, start-ups and collaborations can emerge and thrive, counters apathy and disengagement. Legal and civic empowerment lead to more informed and engaged citizens, who have the power to influence and shape legal and political frameworks, to participate actively in democratic processes, to stand up for their rights, and to help build a more just and inclusive society. Legal empowerment has long been recognised as a key component of strengthening the rule of law, by reducing the power imbalance in interactions between people and those actors and entities charged with providing public services. It is critical for preventing justice problems and in de-escalating conflicts that arise. Prevention has not traditionally been seen as an important role for the justice system, but a people-centred approach demands that prevention of problems becomes a key part of improving people’s lives.
Improving justice pathways and providing people-centred services (chapter 4): Increasing the ability of people to resolve and prevent their justice problems, and to use justice as a platform to participate in their economies and societies, is important to their sense of belonging and is required to build or restore public trust. Targeted engagement is needed, especially with people with lower levels of education, who lack financial, livelihood, and housing security. Lack of intentional engagement may leave people with a decreased sense of dignity in relation to the government. Rules are more effective and reflective of the needs of communities when they are involved in making them (OECD, 2025[19]). When people or entire communities are left out of decision-making processes, systems and regulations often leave them behind as they are not able to resolve justice problems. Providing effective and responsive people-centred justice services starts with identifying the most common justice problems people face and organising the services needed to resolve these effectively and at scale. This requires meeting people where they are, gaining their trust, listening to their perspective, and ensuring that they feel heard. It requires joint leadership across branches of power, the development and execution of shared strategies, agreement on measuring fairness as a desired societal outcome, an inclusive approach that integrates the diversity of people and their lives, the creation of seamless justice pathways, and a focus on finding structural solutions to prevent justice problems from occurring in the first place. To do this, justice institutions need to tailor the system, its rules and procedures to the characteristics and needs of the people it serves, something which cannot be done without the empowerment of those working in the justice system to be responsive, to innovate, and to do what is necessary to resolve problems.
Strengthening administrative justice as the interface between people and institutions (Chapter 5): Globally, 19% of the most common justice problems that people face are related to accessing public services (Task Force on Justice, 2019[5]). The interfaces between the state, responsible for delivering public services, providing benefits and entitlements and enforcing tax and social security laws, and its people and businesses who require those services, is where direct interaction takes place and where people experience and evaluate their relationship to institutions. These interfaces between the state, people, and businesses are what inform people’s relationship with the rule of law. While state systems have become increasingly complex, the expectation of accessibility, speed, and user-friendliness on the side of citizens - effective interfaces, in short - has increased. Effective mechanisms for complaint handling and problem resolution can help repair the relationship and restore trust and can be leveraged to create effective feedback loops for learning and innovation. Strengthening administrative justice is thus key to making the state's functions accessible, responsive, transparent, and accountable. Addressing this is urgent to ensure that public services are delivered fairly and efficiently, thus maintaining citizens' trust in government and preventing disenchantment.
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