I've been rolling this idea around in my head for a while now, but I have no good thoughts on how to really develop it. I suppose I'd need to read up more on the Chinese Celestial Bureaucracy (hereafter I'll call it the CCB) to get a better idea of how it functions, and then I'd be able to have a better sense of how to develop it.
That said, I have this notion that rather than the CCB being positioned in one plane, it would be something that stretches from the heights of Celestia down to the depths of Baator and would be accessible from all planes in-between, with maybe an odd opening in a location where the sense of bureaucratic obtuseness was particularly strong.
I'll keep picking away at this and putting my thoughts down as they come to me. I welcome any thoughts or suggestions!
I've used the CB as a planar patway before like this;
The palaces of the gods and spirits of the CB are their own border-burgs, connected to one another through portals an gates, usually giant archways or bridges. Some of these burgs are on the outlands, and be walked to by your average berk. Some are other places, like Gehenna or the Abyss. Some palaces, like that of the Jade Emperor, no cutter has ever pinned down. Gate keys are, almost invariably, official travel passes issued by the spirit in charge of that area.
Many palace/burgs are simultaneous on more than one plane. Long dusty roads connect many of the palace burgs (even if they're on different planes, so go figure). There are often long lines of weary petitioners on these roads, traveling to their souls' fate, or going to another court for their reincarnation hearing.