Right To Information: First Report

FIRST REPORT
SECOND ADMISTRATIVE REFORMS COMMISSION

RIGHT TO INFORMATION
JUNE 2006
Master Key to Good Governance
SecondAdministrativeReformsCommission
Government of India
2ndFloor, VigyanBhawanAnnexe, MaulanaAzadRoad, NewDelhi 110011
e-mail : arcommission@nic.in website: http://arc.gov.in
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GOVERNMENT OF INDIA
SECOND ADMINISTRATIVE REFORMSCOMMISSION
FIRST REPORT
RIGHT TO INFORMATION
MASTER KEY TO GOOD GOVERNANCE
JUNE 2006
PREFACE
TheSecond AdministrativeReformsCommission hasbeen constituted toprepareadetailed blueprint
for revamping thepublicadministration system. TheCommission hasbeen given widetermsof reference
covering all aspectsof publicadministration. TheCommission in itsfirst report decided toanalyzeand
giverecommendationson thefreedomof information astheRight toInformation Act hasbeen enacted
recentlyand isaparadigmshift in administration.
TheRight toInformation Act isapath-breaking legislation which signalsthemarch fromdarknessof
secrecytodawn of transparency. It lightsup themindset of publicauthorities, whichiscloudedbysuspicion
and secrecy. Opennessin theexerciseof publicpower Executive, Legislativeor J udiciary isaculture,
which needstobenurtured, with privacyand confidentialitybeing an exception. Theright toinformation
will also beapowerful means for fighting corruption. Theeffectiveimplementation of theRight to
Information Act will createan environment of vigilancewhich will help promotefunctioning of amore
participatorydemocracy.
J amesMadison oncesaid, A peoplewhomean tobetheir own governorsmust armthemselveswith
power that knowledgegives. In India, theOfficial SecretsAct, 1923 wasaconvenient smokescreen to
denymembersof thepublicaccesstoinformation. Publicfunctioning hastraditionallybeen shrouded in
secrecy. But in ademocracyin which peoplegovern themselves, it isnecessarytohavemoreopenness. In
thematuringof our democracy, right toinformation isamajor stepforward; it enablescitizenstoparticipate
fullyin thedecision-making processthat affectstheir livessoprofoundly.
It isin thiscontext that theaddressof thePrimeMinister in theLok Sabhaissignificant. Hesaid
I would onlyliketoseethat everyone, particularlyour civil servants, should seetheBill in apositivespirit;
not asadraconian lawfor paralyzing Government, but asan instrument for improving Government -
citizen interfaceresulting in afriendly, caring and effectiveGovernment functioning for thegood of our
people. He further said, This is an innovative Bill, where there will be scope to review its
functioning aswegain experience. Therefore, thisisapieceof legislation, whoseworking will bekept
under constant reviews.
TheCommission, in itsReport, hasdealt with theapplication of theRight toInformation in Executive,
Legislatureand J udiciary. TheJ udiciarycould beapioneer in implementing theAct in letter and spirit
becausemuch of thework that theJ udiciarydoesisopen topublicscrutiny. Government of Indiahas
sanctioned an e-governanceproject in theJ udiciary for about Rs.700 crorewhich would bring about
systematicclassification, standardization and categorization of records. Thiswould help theJ udiciaryto
fulfil itsmandateunder theAct. Similar capacitybuilding would berequired in all other publicauthorities.
Thetransformation fromnon-transparencytotransparencyand publicaccountabilityistheresponsibility
of all threeorgansof State.
TheCommission isbenefited bythedeliberationsat theColloquiumorganized bytheNational J udicial
Academy and inputs fromvarious stakeholders. TheCommission studied various laws on thesubject
including of other countries; it studied relevant reportsof variousCommissionsand Committeesand held
several roundsof deliberationswithStateGovernments. ThisReport, whichgivespractical recommendations
tobring in aregimeof freedomof information, isan outcomeof theaboveefforts. I amconfident that the
implementation of thisReport will usher in aneweraof accountableand transparent administration.
(M. VeerappaMoily)
Chairman
Government of India
Ministryof Personnel, Public Grievances& Pensions
Department of AdministrativeReformsand Public Grievances
Resolution
NewDelhi, the31
st
August, 2005
No. K-11022/9/2004-RC. ThePresident ispleased toset up aCommission of Inquiry to
becalled thesecond AdministrativeReforms Commission (ARC) to prepareadetailed
blueprint for revamping thepublicadministration system.
2. TheCommission will consist of thefollowing :
(i) Shri VeerappaMoily - Chairperson
(ii) Shri V. Ramachandran - Member
(iii) Dr. A.P. Mukherjee- Member
(iv) Dr. A.H. Kalro- Member
(v) Dr. J ayaprakash Narayan - Member
(vi) Smt. VineetaRai - Member-Secretary
3. TheCommission will suggest measurestoachieveaproactive, responsive, accountable,
sustainableand efficient administration for thecountry at all levelsof thegovernment. The
Commission will, inter alia, consider thefollowing :
(i) Organisational structureof theGovernment of India
(ii) Ethicsin governance
(iii) Refurbishing of Personnel Administration
(iv) Strengthening of Financial Management Systems
(v) Stepstoensureeffectiveadministration at theStatelevel
(vi) StepstoensureeffectiveDistrict Administration
(vii) Local Self-Government/Panchayati Raj Institutions
(viii) Social Capital, Trust and Participativepublicservicedelivery
(ix) Citizen-centricadministration
(x) Promoting e-governance
(xi) Issuesof Federal Polity
(xii) CrisisManagement
(xiii) PublicOrder
Someof theissuestobeexamined under each head aregiven in theTermsof Reference
attached asaScheduletothisResolution
4. The Commission may exclude fromits purview the detailed examination of
administration of Defence, Railways, External Affairs, Security and Intelligence, as also
subjectssuch asCentre-Staterelations, judicial reformsetc. which arealready being examined
by other bodies. TheCommission will, however, befreetotaketheproblemsof thesesectors
intoaccount in recommending re-organisation of themachinery of theGovernment or of
any of itsserviceagencies
Someof theissuestobeexamined under each head aregiven in theTermsof Reference
attached asaScheduletothisResolution
5. TheCommission will givedueconsideration totheneed for consultation with the
StateGovernments.
6. TheCommission will deviseitsown procedures(including for consultationswith the
StateGovernment asmay beconsidered appropriateby theCommission), and may appoint
committees, consultants/adviserstoassist it. TheCommission may takeintoaccount the
existing material and reportsavailableon thesubject and consider building upon thesame
rather than attempting toaddressall theissuesab initio.
7. TheMinistries and Departments of theGovernment of India will furnish such
information and documents and provide other assistance as may be required by the
Commission. TheGovernment of Indiatruststhat theStateGovernmentsand all others
concerned will extend their fullest cooperation and assistancetotheCommission.
8. TheCommission will furnish its report(s) to theMinistry of Personnel, Public
Grievances& Pensions, Government of India, within oneyear of itsconstitution
(P.I. Suvrathan)
Additional Secretaryto Government of India
CONTENTS
Chapter 1 Introduction 1
Part-I OFFICIAL SECRETS
Chapter 2 Official SecretsAct and Other Laws 4
2.1 Background 4
2.2 TheOfficial SecretsAct 5
2.3 Governmental Privilegein Evidence 12
2.4 TheOath of Secrecy 17
2.5 Exempted Organisations 18
Chapter 3 Rulesand Procedures 20
3.1 TheCentral Civil Services(Conduct) Rules 20
3.2 TheManual of OfficeProcedure 21
Chapter 4 ConfidentialityClassification 23
Part-II IMPLEMENTATION OF THE RIGHT TO INFORMATION ACT
Chapter 5 Rightsand Obligations 27
5.1 Rightsand ObligationsUnder theAct 27
5.2 Building Institutions 27
5.3 Designating Information Officersand AppellateAuthorities 29
5.4 Organising Information and Record Keeping 30
5.5 Capacity Building and AwarenessGeneration 33
5.6 Monitoring Mechanism 35
Chapter 6 Issuesin Implementation 38
6.1 Implementation of theAct 38
6.2 Facilitating Access 38
6.3 Inventory of PublicAuthorities 41
6.4 SingleWindow Agency at District level 41
6.5 SubordinateField Officesand PublicAuthorities 42
6.6 Application to Non Governmental Bodies 43
6.7 TimeLimit for Information Beyond 20 Years 44
6.8 Mechanismfor Redressal of PublicGrievances 46
6.9 Frivolousand VexatiousRequests 47
Chapter 7 Application of theRight To Information 50
Act to theLegislatureand theJudiciary
Chapter 8 Removal of Difficulties 54
Conclusion 56
Summary of Recommendations 57
LIST OF ANNEXURES
Annexure-I(1) List of participantsat theNational Colloquium 70
Annexure-I(2) Recommendationsof theColloquium 74
Annexure-I(3) Questionnaire 83
Annexure-I(4) Casestudies 96
Annexure-I(5) A ComparativeAnalysisof theRight toInformationAct of different States 103
Annexure-I(6) A ComparativeAnalysisof International LawsonFreedomof Information 110
Annexure-V(1) List of StateswhichhaveconstitutedInformationCommissions 117
Annexure-V(2) Number of CPIOs/PIOsappointedbyvariousMinistries/ Departments 118
Annexure-V(3) Responsesof someMinistries/Departmentsabout statusof record-keeping 119
Annexure-VI(1) TheInvertedTreeconcept for maintaininginventoryof thepublicauthorities 120
LIST OF ABBREVIATIONSUSED
APIO Assistant PublicInformation Officer
BSF Border Security Force
CAG Comptroller and Auditor General
CIC Central Information Commission
CPIO Central PublicInformation Officer
CRPF Central ReservePoliceForce
GOI Government of India
NCRWC National Commission toReview theWorking of theConstitution
NIC National InformaticsCentre
NSA National Security Act
OSA Official SecretsAct
PGC PublicGrievancesCommission
PIO PublicInformation Officer
PRO PublicRecordsOffice
RTI Right toInformation
SIC StateInformation Commission
I f libertyand equality, asisthought bysomearechieflytobefound in democracy, they
will bebest attained when all personsalikesharein thegovernment totheutmost.
Aristotle
1.1Introduction
1.1.1 Right toinformation hasbeen seen asthekey tostrengthening participatory democracy
and ushering in peoplecentred governance. Accesstoinformation can empower thepoor
and theweaker sectionsof society todemand and get information about publicpoliciesand
actions, thereby leading to their welfare. Without good governance, no amount of
developmental schemescan bring improvementsin thequality of lifeof thecitizens. Good
governancehasfour elements- transparency, accountability, predictability and participation.
Transparency referstoavailability of information tothegeneral public and clarity about
functioning of governmental institutions. Right toinformation opensup governmentsrecords
topublicscrutiny, thereby arming citizenswith avital tool toinformthemabout what the
government does and how effectively, thus making thegovernment moreaccountable.
Transparency in government organisationsmakesthemfunction moreobjectively thereby
enhancing predictability. Information about functioning of government alsoenablescitizens
to participatein thegovernanceprocess effectively. In a fundamental sense, right to
information isabasicnecessity of good governance.
1.1.2 In recognition of theneed for transparency in publicaffairs, theIndian Parliament
enacted theRight toInformation Act (hereinafter referred toastheRTI Act or theAct) in
2005. It is apath breaking legislation empowering peopleand promoting transparency.
Whileright toinformation isimplicitly guaranteed by theConstitution, theAct setsout the
practical regimefor citizenstosecureaccesstoinformation on all mattersof governance. In
thewordsof thePrimeMinister
1
.
Efficient andeffectiveinstitutionsarethekeytorapideconomicandsocial development, institutions
whichcantranslatepromisesintopoliciesandactionableprogrammeswiththeleast possiblecost
andwiththemaximumpossibleefficiency; institutionswhichcandeliver onthepromisesmade
INTRODUCTION
1
1
1
Source: PMsinterventionintheLok SabhaontheRight toInformationBill debate, May, 112005
Introduction Right toInformation Master KeytoGoodGovernance
andconvert, outlaysintooutcomes. For institutionstobeeffectivetheymust functionina
transparent, responsibleandaccountablemanner.TheRight toInformationBill, will bring
intoforceanother right which will empower thecitizen in thisregard and ensurethat
our institutionsandthefunctionariesdischargetheir dutiesinthedesiredmanner. It will bring
intoeffect acritical right for enforcingother rightsandfill avital gapinacitizensframework
of rights.
1.1.3 Thislaw isvery comprehensiveand coversalmost all mattersof governanceand has
thewidest possiblereach, being applicabletogovernment at all levels Union, Stateand
Local aswell asrecipientsof government grants. Accesstoinformation under thisAct is
extensivewith minimumexemptions. Even theseexemptionsaresubject tostrict safeguards.
1.1.4 Asmay beexpected in anew legislation of thiskind, permanently impacting on all
agenciesof government, therearebound tobeimplementation issuesand problemareas,
which need tobeaddressed. TheCommission thereforedecided tolook at theimplementation
of thisnew legislation and makesuitablerecommendationstofulfil theobjectivesof the
Act. WhiletheAct appliestoall branchesof government Executive, Legislativeand Judicial,
theCommissionsstudy and recommendationslargely pertain totheExecutivebranch at all
levels. However, theCommission hasalsocarefully examined someof thekey issueswhich
need tobeaddressed in theLegislativeand J udicial branchesfor effectiveimplementation of
theAct. It isfor thecompetent authoritiesof theLegislaturesand J udiciary toexaminethese
recommendationsand adopt themwith modificationstosuit their requirements.
1.1.5 Oneof thetermsof referenceof theAdministrativeReformsCommission pertains
totheFreedomof Information, specifically thefollowing aspects:-
a. Toreview theconfidentiality classification of government documentsspecially
with referencetotheOfficial SecretsAct.
b. Toencouragetransparency and accesstonon-classified data.
c. Disclosureof information and transparency asasupplement totheRight to
Information of thecitizens.
1.1.6 TheCommission hasexamined therelevant laws, rulesand manualswhich havean
impact on freedomof information. It hasspecifically examined theOfficial SecretsAct, the
Indian EvidenceAct, Manual of Departmental Security Instructionsand thosepertaining to
officeproceduresand Conduct Rulesand maderecommendationsin respect of these.
1.1.7 In order toelicit viewsfromdifferent stakeholderson Freedomof Information the
Commission organized aNational Colloquiumat theNational J udicial Academy, Bhopal in
December 2005. Thelist of participants in theNational Colloquiumorganized by the
Commission on thesubject isin Annexure-I(1). Therecommendationsof theColloquium
areat Annexure-I(2). Thequestionnairecirculated tovariousstakeholdersisin Annexure-
I(3). Thecasestudiesconducted or relied on by theCommission arein Annexure-I(4). The
comparativestudy of transparency lawsin variousStatesand other countriesisin Annexure-
I(5) and I(6) respectively.
1.1.8 ThisReport isin twoparts: Part I focusseson Official Secretsand confidentiality
issues and is divided into threechapters: Official Secrets; Rules and Procedures; and
ConfidentialityClassification. Part II focuseson thestepsrequired for effectiveimplementation
of theAct and isdivided intofour chapters: Rightsand Obligations, Issuesin Implementation,
Application of theAct totheLegislatureand theJ udiciary and Removal of Difficulties.
3 2
2.1Background:
2.1.1 Themost contentiousissuein theimplementation of theRight to Information Act
relatesto official secrets. In ademocracy, peoplearesovereign and theelected government
and its functionaries are public servants. Therefore by the very nature of things,
transparency should bethenormin all mattersof governance. However it iswell recognised
that public interest isbest served if certain sensitivemattersaffecting national security
arekept out of publicgaze. Similarly, thecollectiveresponsibility of theCabinet demands
uninhibited debateon public issuesin theCouncil of Ministers, freefromthepullsand
pressuresof day-to-day politics. Peopleshould havetheunhindered right to know the
decisionsof theCabinet and thereasonsfor these, but not what actually transpireswithin
theconfinesof theCabinet room. TheAct recognizestheseconfidentiality requirements
in mattersof Stateand Section 8 of theAct exemptsall such mattersfromdisclosure.
2.1.2 TheOfficial SecretsAct, 1923 (hereinafter referred to asOSA), enacted during the
colonial era, governsall mattersof secrecy and confidentiality in governance. Thelaw
largely dealswith mattersof security and providesaframework for dealing with espionage,
sedition and other assaultson theunity and integrity of thenation. However, given the
colonial climateof mistrust of peopleand theprimacy of public officialsin dealing with
thecitizens, OSA created a cultureof secrecy. Confidentiality becamethenormand
disclosuretheexception. WhileSection 5 of OSA wasobviously intended to deal with
potential breachesof national security, thewording of thelaw and thecolonial timesin
which it wasimplemented madeit into acatch-all legal provision converting practically
every issueof governanceinto aconfidential matter. Thistendency wasbuttressed by the
Civil ServiceConduct Rules, 1964 which prohibit communication of an official document
to anyonewithout authorization. Not surprisingly, Section 123 of theIndian Evidence
Act, enacted in 1872, prohibitsthegiving of evidencefromunpublished official records
without thepermission of theHead of theDepartment, who hasabundant discretion in
thematter. Needlessto say even theinstructionsissued for classification of documentsfor
security purposes and theofficial procedures displayed this tendency of holding back
information.
2
Part I - OFFICIAL SECRETS
OFFICIAL SECRETSACT AND OTHER LAWS
2.2TheOfficial SecretsAct:
2.2.1 TheRight toInformation Act hasanon-obstanteclause:
Sec. 8(2): NotwithstandinganythingintheOfficial SecretsAct, 1923 nor anyof theexemptions
permissibleinaccordancewithsub-section(1), apublicauthoritymayallowaccesstoinformation,
if publicinterest indisclosureoutweighstheharmtotheprotectedinterests.
2.2.2 Theprovisionsof theAct which allow disclosureof information even wherethereis
aclash with theexemption provisionsof Sec.8(1) enjoy ageneral immunity fromother Acts
and instrumentsby virtueof Sec.22 of the Act :
Sec.22 Theprovisionsof thisAct shall haveeffect notwithstandinganythinginconsistent therewith
containedintheOfficial SecretsAct, 1923, andanyother lawfor thetimebeinginforceor any
instrument havingeffect byvirtueof anylawother thanthisAct.
2.2.3 ThusOSA would not comein theway of disclosureof information if it isotherwise
permissibleunder theRTI Act. But OSA along with other rulesand instructionsmay
impingeon theregimeof freedomof information asthey historically nurtured aculture
of secrecy and non-disclosure, which isagainst thespirit of theRight to Information
Act.
2.2.4 Section 5 of OSA, asstated earlier, isthecatch all provision. Asper thisSection,
any person having information about aprohibited place, or such information which
may help an enemy state, or which hasbeen entrusted to himin confidence, or which
hehasobtained owing to hisofficial position, commitsan offenceif (s)hecommunicates
it to an unauthorised person, usesit in amanner prejudicial to theinterestsof theState,
retains it when (s)he has no right to do so, or fails to take reasonable care of such
information. Any kind of information is covered by this Section if it is classified as
secret. Theword secret or thephraseofficial secrets hasnot been defined in the
Act. Therefore, public servantsenjoy thediscretion to classify anything assecret.
2.2.5 TheSupremeCourt in SamaAlanaAbdullavs. Stateof Gujarat [(1996) 1 SCC
427] has held: (a) that theword secret in clause(c) of sub-section (1) of Section 3
qualified official codeor password and not any sketch, plan, model, articleor noteor
other document or information and (b) when the accused was found in conscious
possession of thematerial (map in that case) and no plausibleexplanation has been
given for itspossession, it hasto bepresumed asrequired by Section 3(2) of theAct
that thesamewasobtained or collected by theappellant for apurposeprejudicial to the
safety or interestsof theState. Therefore, asketch, plan, model, article, noteor document
need not necessarily besecret in order to becovered by theAct, provided it isclassified
5 4
Official SecretsAct andOther Laws
asan Official Secret. Similarly, even information which doesnot haveabearing on
national security cannot bedisclosed if thepublic servant obtained or hasaccessto it
by virtueof holding office. Such illiberal and draconian provisionsclearly bred aculture
of secrecy. Though theRTI Act now overridestheseprovisionsin relation to matters
not exempted by theAct itself fromdisclosure, thefact remainsthat OSA in itscurrent
formin thestatutebooksisan anachronism.
2.2.6 TheLawCommission in its43
rd
Report (1971), summarised thedifficultiesencountered
with theall inclusivenatureof Section 5 of OSA, in theabsenceof aclear and concise
definition of official secret, in thefollowing words:
7.6.1 Thewidelanguageof section5 (1) mayleadtosomecontroversy. It penalizesnot only
thecommunicationof informationuseful totheenemyor anyinformationwhichisvital to
national security, but alsoincludestheact of communicatinginanyunauthorizedmanner any
kindof secret informationwhichaGovernment servant hasobtainedbyvirtueof hisoffice.
Thus, everynotingintheSecretariat filetowhichanofficer of theSecretariat hasaccessis
intendedtobekept secret. But it isnotoriousthat suchinformationisgenerallycommunicated
not onlytoother Government servantsbut eventosomeof thenon-official publicinanunauthorized
manner. Everysuchinformationwill not necessarilybeuseful totheenemyor prejudicial to
national security. A questionariseswhether thewidescopeof section5(1) shouldbenarrowed
downtounauthorizedcommunicationonlyof that classof informationwhichiseither useful to
theenemyor which mayprejudiciallyaffect thenational securityleavingunauthorized
communicationof other classesof secret informationtobeamerebreachof departmental rules
justifyingdisciplinaryaction. It may, however, beurgedthat all secret informationaccessibleto
aGovernment servant mayhavesomeconnectionwithnational securitybecausethemaintenance
of secrecyinGovernment functionsisessentiallyfor thesecurityof theState. Inthisview, it may
beuseful toretainthewidelanguageof thissection, leavingit totheGovernment not tosanction
prosecutionwhereleakageof suchinformationisof acomparativelytrivial naturenot materially
affectingtheinterestsof theState
7.6.3 Thelanguageof sub-section(1) of section5 iscumbersomeandlacksclarity. Hence
without anychangeinsubstance, werecommendtheadoptionof adraftingdeviceseparately
definingofficial secret asincludingtheenumeratedclassesof documentsandinformation.
2.2.7 TheLawCommission alsorecommended consolidation of all lawsdealing with national
security and suggested aNational Security Bill. Theobservations madeby theLaw
Commission reproduced below arepertinent:
1.6 ThevariousenactmentsinforceinIndia dealingwithoffencesagainst thenational
securityare:-
(i) chapters6 and7 of theIndianPenal Code;
(ii) theForeignRecruitingAct, 1874;
(iii) theOfficial SecretsAct, 1923;
(iv) theCriminal LawAmendment Act, 1938;
(v) theCriminal LawAmendment Act, 1961; and
(vi) theUnlawful Activities(Prevention) Act, 1967.
Of these, chapters6 and7 of theIndianPenal Codehavebeenfullyconsideredbyusinour
Report onthat Code. Wehaverecommendedthereinthat theCriminal LawAmendment Act,
1938, shouldbeincludedinchapter 7 of theCode. A brief summaryof theother statutesonthe
subject will beuseful.
1.7 TheForeignRecruitingAct, 1874 dealsmainlywithrecruitment inIndiafor serviceina
foreignstate. Thedefinitionof foreignstate isverywideandwill includeall countriesbeyond
thelimitsof India, includingnot onlydejureGovernmentsbut alsodefactoGovernments.
Recruitment for serviceinsuchforeignstateshasanindirect but closebearingonnational
securityandhenceshouldfindaplaceinthe proposedlaw.
1.8 ReferenceshouldalsobemadetotheForeignEnlistment Act, 1870, anAct of theBritish
Parliament which, thoughnot formallyrepealed, isof doubtful applicationtoIndiasincethe
Constitution. ThisAct regulatestheconduct of Britishsubjectsthroughout Her Majestys
dominionsduringtheexistenceof hostilitiesbetweenforeignStateswithwhichtheBritishCrown
isat peace. It isobviousthat similar legislationshouldfindplaceinour statutebook. Like
recruitment for aforeignState, enlistment for serviceinaforeignStatehasalsoanindirect but
closebearingonnational security.
1.9 TheOfficial SecretsAct, 1923 isthemainstatutefor fightingespionageactivitieswhich
vitallyaffect thenational security. ThemainoffencescreatedbythisAct areasfollows:-
(i) spying, or entryintoaprohibitedplaceetc., transmissionor collectionof secret
information, andthelike;
(ii) wrongful communicationof, or receivingsecret informationof thespecifiedtype;
(iii) harbouringspies;
(iv) unauthorizeduseof uniforms, falsificationof reportsetc., inorder toenter a
prohibitedplace, or for apurposeprejudicial tothesafetyof theState;
(v) interferencewiththepoliceor military, near aprohibitedplace.
1.10 Theprimaryobject of theCriminal LawAmendment Act, 1961 istopunishpersonswho
questiontheterritorial integrityor frontiersof Indiainamanner prejudicial tothesafetyand
securityof thecountry. Thoughthereisundoubtedlynecessityfor retainingsomeof theseprovisions
7 6
Right toInformation Master KeytoGoodGovernance Official SecretsAct andOther Laws
whichhaveadirect bearingonnational securityandintegrity, inviewof thepassingof the
Unlawful Activities(Prevention) Act, 1967, someof theprovisionsof theearlier Act maynot be
necessary. Thisquestionwill beconsideredat theappropriateplace.
1.11 TheUnlawful Activities(Prevention) Act, 1967 waspassedfor theeffectivepreventionof
disruptiveactivities, whether theyareinsupport of secessionof apart of theterritoryof India, or
insupport of thesecessionof apart of theterritoryof IndiafromtheUnion, or otherwisedisclaim,
questionor disrupt thesovereigntyandterritorial integrityof India. It dealswithsuchactivities
of individualsandalsoof associations. Itsprovisionsastounlawful associationsaredetailed
andelaborate.
1.12 That thisAct constitutesavital link inthechainof enactmentsof importancetonational
security, cannot bedoubted. Activitiesintendedtodetachapart of theterritoryof acountry (as
describedinsomeof theforeignPenal Codes) standat theapexof treasonableactivities. Theygo
muchbeyondtheformationof aparallel Government or actsof overthrowingtheGovernment,
whicharethesubject matter of someof theprovisionsinChapter 6 of theIndianPenal Code.
Suchactivities, if successful, wouldbringintoexistenceaparallel nationwithitsownsovereignty
andterritorial integritywhichwill bearival tothecountryfromwhichtheterritoryisdetached.
Thereis, therefore, enoughjustificationfor bringingtheoffencescoveredbythisAct withinthe
foldof legislationonnational security.
1.13 Apart fromtheaforesaidstatutes, thereareprovisionsinother Actsmainlyof aprocedural
naturewhichhaveabearingonnational securityandintegritybut astheyformpart of special
statues, dealingwithother subjectsalso, wewouldnot recommendtheir incorporationinthenew
law.
1.14 Thefirst questionwehavetoconsider iswhether thereisareallynecessityfor aseparate
consolidatedlawonthesubject, or elsewhether theaforesaidstatutesmaybeallowedtoremainas
before. Themainadvantagesof consolidationof statutesarethese:-
(1) Consolidationdiminishesthebulk of thestatutebook andmakesthelaweasier for those
whohavetoadminister it (includingJudges, administrators, theBar andthelitigant
public); for theyhaveonlyonedocument toconsult insteadof twoor more.
(2) TheconsolidatedAct speaksfromoneandthesametime, andthustheconveniencearising
fromtheinterpretationsof sectionsof variousActsspeakingfromdifferent timesisavoided.
Theart of legislativedraftinghasalteredverymuchduringthelast centuryandthe
languageused, thelengthof thesentences, thearrangement of theclausesandthesections
mayhavetobedrasticallyalteredtoconformtomodernstyleof drafting. Thisapplies
speciallytotheForeignRecruitingAct andtheOfficial SecretsAct whichwill, inany
case, requirerevision.
(3) Someof theprovisionsof theearlier Actsmayhavetobeomittedasunnecessary.
Inadditiontotheseadvantages, therearisesanopportunityof incorporatinginthenewAct some
of theprovisionsof theforeigncodesdealingwithnational securitywhichmaybesuitedfor
Indianconditionsalso. For thesereasons, weareof theviewthat thereshouldbeaconsolidated
statuteentitledtheNational SecurityAct.
1.16 Another questioniswhether thenewlawshouldbeaseparateenactment, or else, whether
it couldbeinsertedasaseparatechapter intherevisedIndianPenal Code. It istruethat crimes
affectingnational securityformanessential part of thecriminal lawof thecountry, andwefind
that inmanyforeigncodes, thesecrimesareincludedinaseparatechapter inthepenal Code.
But weconsider it desirabletopassseparatelegislationonthesubject, for thefollowingreasons:-
(1) A special ruleof limitationmayhavetobeprovidedfor someoffencesaffectingnational
security.
(2) Thenecessityof obtainingsanctionfromtheGovernment beforeinitiatingprosecutionsfor
offencesunder thenewlawisaspecial feature, not foundinrespect of most of theoffences
under thePenal Code.
(3) Insomeother respectsalso, theprovisionsof theCriminal ProcedureCodemayhavetobe
modifiedintheir applicationtooffencesunder thenewlaw.
(4) Therulesof evidenceordinarilyapplicablefor trial of criminal caseswill havetobevery
muchmodifiedintheir applicationfor thetrial of someof theoffencesunder thenewlaw.
Thesereasonsmakethenewlawdistinguishablefrommost of theprovisionsof theIndianPenal
Codeandit may, hence, besomewhat incongruousif thenewlawisintroducedasaseparate
chapter intheIndianPenal Code. Wethereforerecommendseparatelegislationonthesubject.
2.2.8 TheCommission agreeswith therecommendation of theLaw Commission that all
laws relating to national security should be consolidated. The Law Commissions
recommendation wasmadein 1971. TheNational Security Act (NSA), subsequently enacted
in 1980, essentially replaced theearlier Maintenanceof Internal Security Act and dealsonly
with preventivedetention. Therefore, a new chapter needs to beadded to theNSA
incorporating relevant provisionsof OSA and other lawsdealing with national security.
9 8
2.2.9 TheCommission studied theReport of theWorking Group constituted under the
Chairmanship of Shri H. D. Shourieon Right to Information and Transparency, 1997
(hereinafter referred toastheShourieCommittee) which hasprovided valuableinputsin
framing therecommendationson thisissue. TheShourieCommitteehad thefollowing to
say about OSA:
It istheOfficial SecretsAct that hasbeenregardedinmanyquartersasbeingprimarily
responsiblefor theexcessivesecrecyingovernment. ItsCatch-all naturehasinvitedsustained
criticismanddemandfor itsamendment. Section5 of thisAct providesfor punishment for
unauthorizeddisclosureof Official secretsbut omitstodefinesecrets.
2.2.10 TheShourieCommitteerecommended acomprehensiveamendment of Section
5(1) to makethepenal provisionsof OSA applicableonly to violationsaffecting national
security. However theMinistry of HomeAffairs, on consultation expressed theview that
thereisno need to amend OSA astheRTI Act hasoverriding effect. TheMinistry, quite
understandably, isconcerned about theneed for astrong legal framework to deal with
offencesagainst thestate. Whilerecognizing theimportanceof keeping certain information
secret in national interest, theCommission isof theview that thedisclosureof information
hasto bethenormand keeping it secret should bean exception. OSA, in itspresent form
isan obstaclefor creation of aregimeof freedomof information, and to that extent the
provisionsof OSA need to beamended. TheCommission, on careful consideration agrees
with theamendment proposed by theShourieCommittee, asit reconcilesharmoniously
theneed for transparency and theimperatives of national security without in anyway
compromising thelatter. Thesecan beincorporated in theproposed new chapter in the
NSA relating to Official Secrets.
2.2.11 When thereis morethan onelaw - oneold and theother new on thesame
subject, thereis always someambiguity and consequent confusion in implementation.
Thishasbeen theexperiencewith anumber of such lawsincluding someconstitutional
amendments. Such duplication and ambiguity also leadsto needlesslitigation. Despite
implied repeal and provisions likenotwithstanding anything contained in any other
law theold subordinatelegislation, notifications and executiveinstructions continue
unaltered and govern actual implementation. In order to send astrong signal about the
changeand for thesake of effectiveimplementation, theold law/sshould berepealed or
modified to theextent necessary. Basic changeand lazy legislation do not go together.
2.2.12Recommendations:
a. TheOfficial SecretsAct, 1923should berepealed, and substituted bya
chapter in theNational SecurityAct, containingprovisionsrelatingto
official secrets.
b. Theequivalent of theexistingSection 5, in thenewlawmaybeon the
linesrecommended bytheShourieCommitteeasquoted below.
5(1) If anyperson, havingin hispossession or control anyofficial
secret which hascomeinto hispossession or control byvirtueof:-
b1. hisholdingor havingheld an officewith or under government,
or
b2. acontract with thegovernment, or
b3. it beingentrusted to himin confidencebyanother person
holdingor havingheld an officeunder or with thegovernment,
or in anyother manner,
i. communicates, without dueauthoritysuch official secret
to another person or usesit for apurposeother than a
purposefor which heispermitted to useit under any
lawfor thetimebeingin force; or
ii. failsto takereasonablecareof, or so conductshimself
asto endanger thesafetyof theofficial secret; or
iii. wilfullyfailsto return theofficial secret when it ishis
dutyto return it,
shall beguiltyof an offenceunder thissection.
5(2) Anyperson voluntarilyreceivinganyofficial secret knowing
or havingreasonableground to believe, at thetimehereceivesit,
that theofficial secret iscommunicated in contravention of thisAct,
5(3) A person guiltyof an offenceunder this section shall be
punishablewith imprisonment for atermwhich mayextend tothree
yearsor with fineor with both.
Explanation: For thepurposeof thissection, Official Secret means
anyinformation thedisclosureof which islikelyto prejudicially
11 10
affect thesovereigntyand integrityof India, thesecurityof State,
friendly relations with foreign states, economic, commercial,
scientific and technological mattersrelatingto national securityand
includes: anysecret code, password, sketch plan, model, article, note
or document in relation to aprohibited place.
2.3 Governmental Privilegein Evidence:
2.3.1 PublicLaw in itsprocedural aspect isof asmuch interest assubstantivelaw. Although
thecitizen may suepublicbodiesand theGovernment, it doesnot necessarily follow that
thelaw and procedureapplied by thecourtsin such suitswill bethesameasisapplied in
litigation between privatecitizens. Special procedural advantagesand protectionsareenjoyed
by theState. Onesuch protection operatesin thefield of evidenceand isin thenatureof a
privilege regarding the production of certain documents and disclosure of certain
communications
2
.
2.3.2 Thetermprivilege asused in Evidencelaw meansfreedomfromcompulsion togive
evidenceor todiscover material, or aright toprevent or bar information fromother sources
during or in connection with litigation, but on groundsextrinsictothegoalsof litigation.
3
2.3.3 Section 123 of theIndian EvidenceAct, 1872 prohibitsthegiving of evidencederived
fromunpublished official recordsrelating toaffairsof Stateexcept with thepermission of
theHead of theDepartment. ThisSection readsasfollows:
Nooneshall bepermittedtogiveanyevidencederivedfromun-publishedofficial recordsrelating
toanyaffairsof State, except withthepermissionof theofficer at theheadof thedepartment
concerned, whoshall giveor withholdsuchpermissionashethinksfit.
2.3.4 Further, Section 124 of theAct stipulates:
Nopublicofficer shall becompelledtodisclosecommunicationsmadetohiminofficial confidence
whenheconsidersthat thepublicinterestswouldsuffer bythedisclosure.
2.3.5 TheLaw Commission in its69
th
report (1977) on theIndian EvidenceAct suggested
that Section 123 should berevised on thefollowing lines:
(1) Nooneshall bepermittedtogiveanyevidencederivedfromunpublishedofficial records
relatingtoanyaffairsof State, unlesstheofficer at theheadof thedepartment concernedhas
givenpermissionfor givingsuchevidence. (Thispropositionwasintendedtorestatetheposition,
tostart with. It wouldoperateprimarilyasbetweenthewitnessandhissuperior. Therewasno
changeof substance).
(2) Suchofficer shouldnot withholdsuchpermissionunlessheissatisfiedthat thegivingof such
evidencewouldbeinjurioustothepublicinterest. Heshouldmakeanaffidavit alsointhis
regard. TheCourt, mayif it thinksfit, call for a further affidavit fromtheheadof the
department. (This propositionwasintendedtoamplifythesection, byhighlightingthetest of
injurytothepublicinterest atest discerniblefromthecaselawonthesubject andby
codifyingtheprocedurethat hadalreadybeenindicatedjudicially.
(3) Wheresuchofficer haswithheldpermissionfor thegivingof suchevidence, andtheCourt,
after inspectingtheunpublishedofficial recordsconcernedandafter consideringtheaffidavit, is
of theopinionthat thegivingof suchevidencewouldnot beinjurioustothepublicinterest, the
court shouldrecorditsdecisiontothat effect andthereuponthesectionwill not applytosuch
evidence. [Thispropositionwasintendedtomodifytheexistingsection, insofar asthetextual
lawwasconcerned. Thechangewasanimportant one, asthedecisionastoinjurytothepublic
interest wouldbewiththeCourt andnot withtheofficer at theheadof theDepartment]
Similarlyit wasrecommendedthat Section124 of theIndianEvidenceAct shouldbeamended
asfollows:
(1) Nopublicofficer shall becompelledtodisclosecommunicationsmadetohiminofficial
confidence, other thancommunicationscontainedinunpublishedofficial recordsrelatingtoany
affairsof State, whentheCourt considersthat thepublicinterestswouldsuffer bythedisclosure.
(2) Whereapublicofficer whoisawitnessisaskedaquestionwhichmight requirethedisclosure
of anysuchcommunication, andheobjectstoansweringthequestiononthegroundthat the
publicinterestswouldsuffer byitsdisclosure, thecourt shall, beforerejectinghisobjection, ascertain
fromhim, inchambers, thenatureof hisobjectionandreasonstherefor.
2.3.6 TheLaw Commission onceagain examined Section 123 and 124 and gaveits
recommendations in its 88
th
report.(1983). It recommended that Sections 123 and 124
should beamended in thefollowing manner:
123(1) Subject totheprovisionsof thissection, nooneshall bepermittedtogiveanyevidence
derivedfromunpublishedofficial recordsrelatingtoanyaffairsof State, unlesstheofficer at the
headof thedepartment concernedhasgivenpermissionfor givingsuchevidence.
123(2) Suchofficer shall not withholdsuchpermission, unlessheissatisfiedthat thegivingof
suchevidencewouldbeinjurioustothepublicinterest; andwherehewithholdssuchpermission,
heshall makeanaffidavit containingastatement tothat effect andsettingforthhisreasons
therefore:
Provided that wheretheCourt isof opinionthat theaffidavit somadedoesnot statethefactsor
thereasonsfully, theCourt mayrequiresuchofficer or, inappropriatecases, theMinister concerned
withthesubject, tomakeafurther affidavit onthesubject.
13
2
88
th
Report of LawCommissionof India
3
Paul F.Rothstein, Evidence: StateandFederal Rules(1981), page407
13 12
123(3) wheresuchofficer haswithheldpermissionfor thegivingof suchevidence, thecourt,
after consideringtheaffidavit or further affidavit, andif it sothinksfit, after examiningsuch
officer or, inappropriatecases, theMinister, orally-
(a) shall issueasummonsfor theproductionof theunpublished official recordsconcerned,
if such summonshasnot alreadybeenissued;
(b) shall inspect the records inchambers; and
(c) shall determinethequestionwhether thegivingof suchevidencewouldor wouldnot
beinjurioustothepublicinterest, recordingitsreasonstherefor.
123 (4) Where, under subsection(3), thecourt decidesthat thegivingof suchevidencewould
not beinjurioustothepublicinterest, theprovisionsof sub-section(1) shall not applytosuch
evidence.
124(1) Nopublicofficer shall becompelledtodisclosecommunicationsmadetohiminofficial
confidence, whenthecourt considersthat thepublicinterestswouldsuffer bythedisclosure.
124(2) Whereapublicofficer whoisawitnessisaskedaquestionwhichmight requirethe
disclosureof anysuchcommunication, andheobjectstoansweringthequestionontheground
that thepublicinterestswouldsuffer byitsdisclosure, thecourt shall, beforerejectinghisobjection,
ascertainfromhim, inchambers, thenatureof hisobjectionandreasonstherefor.
124 (3) Nothinginthissectionappliestocommunicationscontainedinun-publishedofficial
recordsrelatingtoanyaffairsof State, whichshall bedealt withunder section123".
2.3.7 TheShourieCommitteealsoexamined thesesectionsof theIndian Evidence
Act and recommended amendmentsasfollows:
(1) Proposed Sections123 & 124, Indian EvidenceAct.
123.(1) Subject totheprovisionsof thissection, nooneshall bepermittedtogiveanyevidence
derivedfromunpublishedofficial recordsrelatingtoanyaffairsof State, unlesstheofficer
at theheadof thedepartment concernedhasgivenpermissionfor givingsuchevidence.
(2) Suchofficer shall not withholdsuchpermission, unlessheisreasonably satisfied that the
givingof suchevidencewouldbeinjurioustothepublicinterest ; and wherehewithholds
suchpermission, heshall makeanaffidavit containingastatement tothat effect and
settingforthhisreasonstherefore:
Providedthat wheretheCourt isof opinionthat theaffidavit somadedoesnot statethe
factsor thereasonsfully, theCourt mayrequiresuchofficer or, inappropriatecases, the
Minister concernedwiththesubject, tomakeafurther affidavit onthesubject.
(3) Wheresuchofficer haswithheldpermissionfor thegivingof suchevidence, theCourt,
after consideringtheaffidavit or further affidavit, andif it sothinksfit, after examining
suchofficer or, inappropriatecases, theMinister, orally:-
(a) shall issueasummonsfor theproductionof theunpublishedofficial recordsconcerned, if
suchsummonshasnot alreadybeenissued.
(b) shall inspect therecordsinchambers; and
(c) shall determinethequestionwhether thegivingof suchevidencewouldor wouldnot be
injurioustopublicinterest, recordingitsreasonstherefor.
(4) Where, under sub-section(3), theCourt decidesthat thegivingof suchevidencewould
not beinjurioustopublicinterest, theprovisionsof sub-section(1) shall not applytosuch
evidence.
124.(1) Nopublicofficer shall becompelledtodisclosecommunicationsmadetohiminofficial
confidence, whentheCourt considersthat thepublicinterestswouldsuffer bythedisclosure.
(2) Whereapublicofficer whoisawitnessisaskedaquestionwhichmight requirethe
disclosureof anysuchcommunication, andheobjectstoansweringthequestiononthe
groundthat thepublicinterestswouldsuffer byitsdisclosure, theCourt shall, before
adjudicatinguponhisobjection, ascertainfromhim, inchambers, thenatureof hisobjection
andreasonstherefor.
(3) Nothinginthissectionappliestocommunicationscontainedinunpublishedofficial records
relatingtoanyaffairsof State, whichshall bedealt withunder Section123.
Draft of proposed provision tobeinserted at theappropriateplacein theCode
of Civil Procedure, 1908 and theCodeof Criminal Procedure, 1973.
Anypersonaggrievedbythedecisionof anyCourt subordinatetotheHighCourt rejectinga
claimfor privilegemadeunder section123 or section124 of theIndianEvidenceAct, 1872
shall havearight of appeal totheHighCourt against suchdecision, andsuchappeal maybe
filednotwithstandingthefact that theproceedinginwhichthedecisionwaspronouncedbythe
court isstill pending
TheCommission studied all theserecommendationsand isof theview that theexisting
provisionsneed amendment on thelinesindicated below:
a. Section 123of theIndian EvidenceAct, 1872should beamended to read
asfollows:
15 14
123.(1)Subject totheprovisionsof thissection, nooneshall bepermitted to
giveanyevidencederived fromofficial recordswhich areexempt from
publicdisclosureunder theRTI Act, 2005.
(2) Where he withholds such permission, he shall make an affidavit
containinga statement tothat effect and settingforthhisreasonstherefor.
(3) Wheresuchofficer haswithheld permission for thegivingof suchevidence,
theCourt, after consideringtheaffidavit or further affidavit, and if it
sothinksfit, after examiningsuch officer or, in appropriatecases, the
Minister, orally:
a) shall issuea summonsfor theproduction of theunpublished official
recordsconcerned, if such summonshasnot alreadybeen issued
b) shall inspect therecordsin chambers; and
c) shall determinethequestion whether thegivingof such evidence
would or would not beinjurioustopublicinterest, recordingits
reasonstherefor.
(4) Where, under sub-section (3), theCourt decidesthat thegivingof such
evidencewould not beinjurioustopublicinterest, theprovisionsof sub-
section (1) shall not applytosuch evidence.
Provided that in respect of information classified asTopSecret for reasonsof
national security, onlytheHigh Court shall havethepower toorder production
of therecords.
Section 124of theIndian EvidenceAct will becomeredundant on account of
theaboveand will haveto berepealed.
Accordingly, thefollowingwill haveto beinserted at theappropriateplacein
theCodeof Civil Procedure, 1908and theCodeof Criminal Procedure, 1973:
Anyperson aggrieved bythedecision of anyCourt subordinatetotheHigh Court
rejectinga claimfor privilegemadeunder section 123 of theI ndian EvidenceAct,
1872 shall havea right toappeal totheHigh Court against such decision, and such
appeal maybefiled notwithstandingthefact that theproceedingin whichthedecision
waspronounced bytheCourt isstill pending.
2.4TheOath of Secrecy:
2.4.1 A Union Minister, whileassuming office, isadministered an oath of secrecy asfollows:
I will not directlyor indirectlycommunicateor reveal toanypersonor personsanymatter which
shall bebrought under myconsiderationor shall becomeknowntomeasaMinister for theUnion
except asmayberequiredfor theduedischargeof mydutiesassuchMinister.
A Minister in theStateGovernment takesasimilar oath.
2.4.2 TheNational Commission toReview theWorking of theConstitution (NCRWC),
whileexamining theRight toInformation had thefollowing tosay:
Government proceduresandregulationsshroudedinaveil of secrecydonot allowtheclientsto
knowhowtheir casesarebeinghandled. Theyshyawayfromquestioningofficershandling
their cases......Inthisregard, government must assumeamajor responsibilityandmobilizeskills
toensureflowof informationtocitizens. Thetraditional insistenceonsecrecyshouldbediscarded.
I n fact, weshould havean oath of transparencyin placeof an oath of secrecy.
2.4.3 A Minister isabridgebetween thepeopleand theGovernment and oweshis
primary allegianceto thepeoplewho elect him. Theexistenceof thisprovision of oath
of secrecy and itsadministration along with theoath of officeappearsto bealegacy of
thecolonial erawherethepublic wassubjugated to thegovernment. However, national
security and larger public interest considerations of the countrys integrity and
sovereignty may requireaMinister or apublic servant with sufficient justification not
to discloseinformation. But avery public oath of secrecy at thetimeof assumption of
officeisboth unnecessary and repugnant to theprinciplesof democratic accountability,
representativegovernment and popular sovereignty. Therefore, theobligation not to
discloseofficial secretsmay bebuilt in through an appropriateinsertion of aclausein
thenational security law dealing with official secrets. If required, such an undertaking
may betaken in writing, thus avoiding public display of propensity to secrecy. The
Commission isthereforeof theview that theOath of Secrecy may bedispensed with
and substituted by astatutory arrangement and awritten undertaking. Further, keeping
in view the spirit of the Act to promote transparency and as recommended by the
NCRWC it would beappropriateif Ministerson assumption of officeareadministered
an oath of transparency alongwith theoath of office.
a. Asan affirmation of theimportanceof transparencyin public affairs,
Ministers on assumption of officemaytakean oath of transparency
alongwith theoath of officeand therequirement of administeringthe
17 16
oath of secrecyshould bedispensed with. Articles75(4) and 164(3), and
theThird Scheduleshould besuitablyamended.
b. Safeguard against disclosureof information against thenational interest
maybeprovided through written undertakingbyincorporation of aclause
in thenational securitylawdealingwith official secrets.
2.5Exempted Organizations:
2.5.1 Certain categoriesof organizationshavebeen exempted fromtheprovisionsof the
Act:
24. (1) NothingcontainedinthisAct shall applytotheintelligenceandsecurityorganisations
specifiedintheSecondSchedule, beingorganisationsestablishedbytheCentral Government or
anyinformationfurnishedbysuchorganisationstothat Government.
2.5.2 Thelist of organizationsincludesBorder Security Force(BSF), Central ReservePolice
force(CRPF), AssamRiflesetc., but theArmed Forceshavebeen left outsidethepurview of
theAct. When organizationssuch asBSF, CRPF, AssamRiflesareexempted, thereisno
rationalefor not exempting theArmed Forcesaswell. TheSecond scheduleneedstobe
periodically revised toincludeor excludeorganizationsin keeping with changing needs.
2.5.3 TheCommission feels that theArmed Forces should beincluded in thelist of
exempted organization (Second Scheduleof theAct), becausealmost all activitiesof the
Armed Forceswould becovered under theexemption 8(a) which statesthat thereshall be
no obligation to giveto any citizen, information which would prejudicially affect the
sovereignty and integrity of India, thesecurity, strategic, scientific or economic interests
of theState. TheCommission ismindful of thefact that theAct providesfor disclosure
when allegationsof corruption and human rightsabusesaremadeeven in respect of the
organizationsincluded in theSecond Schedule{Section 24 (1)}. Also, Section 8 (2) makes
disclosuremandatory in respect of exempted categories, if public interest in disclosure
outweighstheharmto theprotected interests. Therefore, by including Armed Forcesin
theSecond Schedule, whilenational security issafeguarded, disclosureisstill mandatory
when public interest demandsit.
2.5.4 Section 24 of theAct stipulates:
24. (1) NothingcontainedinthisAct shall applytotheintelligenceandsecurityorganisations
specifiedintheSecondSchedule, beingorganisationsestablishedbytheCentral Government or
anyinformationfurnishedbysuchorganisationstothat Government:
Providedthat theinformationpertainingtotheallegationsof corruptionandhumanrights
violationsshall not beexcludedunder thissub-section:
2.5.5 Theorganizationsincluded in theSecond Scheduleneed not appoint PIOs. A question
arisesthat in caseof request for information pertaining toallegationsof corruption and
human rightsviolation, how should arequest bemade? TheCommission feelsthat even in
casesof organizationslisted in Second Schedule, PIO sshould beappointed sothat requests
for applicationsmay befiled with them. A person aggrieved by an order of thePIO may
approach theCIC/SIC.
a. TheArmed Forcesshould beincluded in theSecond Scheduleof theAct.
b. TheSecond Scheduleof theAct maybereviewed periodically.
c. All organizationslisted in theSecond Schedulehaveto appoint PIOs.
Appealsagainst ordersof PIOsshould liewith CIC/SICs. (Thisprovision
can bemadebywayof removal of difficultiesunder section 30).
19 18
3.1TheCentral Civil Services(Conduct) Rules:
3.1.1 TheCentral Civil Services(Conduct) Rulesprohibit unauthorized communication of
information (similar provisionsexist for thestategovernment employeesunder their respective
Rules).
11. Unauthorisedcommunicationof information
NoGovernment servant shall, except inaccordancewithanygeneral or special order of the
Government or intheperformanceingoodfaithof thedutiesassignedtohim, communicate,
directlyor indirectly, anyofficial document or anypart thereof or information toanyGovernment
servant or anyother persontowhomheis not authorisedtocommunicatesuchdocument or
information.
EXPLANATION- QuotationbyaGovernment servant (inhisrepresentation totheHeadof
Office, or Headof Department or President) of or fromanyletter, circular or officememorandum
or fromthenotesonanyfile, to whichheisnot authorisedtohaveaccess, or whichhe is not
authorisedtokeepinhispersonal custodyor for personal purposes, shall amount tounauthorised
communicationof informationwithinthemeaningof thisrule.
3.1.2 TheShourieCommitteeexamined thisissueand stated asfollows:
Thereisawidespreadfeelingthat theCentral Civil Services(Conduct) Rules, 1964, and
correspondingrulesapplicabletoRailways, ForeignServicesandAll IndiaServices, inhibit
government servantsfromsharinginformationwithpublic. Theaccent intheserulesisondenial
of informationtopublic. Thissituationhasobviouslytochangeif freedomof InformationAct is
toserveitspurposeandif transparencyistobebrought about inthesystem.
3.1.3 TheCommission agreeswith theviewsof theShourieCommittee. TheCentral Civil
Services(Conduct) Ruleswereformulated when theRTI Act did not exist. Thespirit of
theseRules is to hold back information. With theemergenceof an era of freedomof
information, theseRuleswould havetoberecast sothat dissemination of information isthe
ruleand holding back information isan exception. TheDepartment of Personnel and Training
3
THE CENTRAL CIVIL SERVICES(CONDUCT) RULES:
hasamended theCivil Services(Conduct) Ruleson theselinesin Oct. 2005. However all
Statesneed toamend rulesin asimilar manner in keeping with theletter and spirit of RTI
Act.
a. Civil ServicesRulesof all Statesmaybereworded on thefollowinglines:
Communication of Official I nformation:
EveryGovernment servant shall, in performanceof hisdutiesin good
faith, communicatetoa member of publicor anyorganisation full and
accurate information, which can be disclosed under the Right to
I nformation Act, 2005.
Explanation Nothingin thisruleshall beconstrued aspermitting
communication of classified information in an unauthorised manner or
for improper gainstoa Government servant or others.
3.2 TheManual of OfficeProcedure
3.2.1 Therelevant portionsof theManual which conflict with theRTI Act arereproduced
below:
116. Unauthorisedcommunicationof official information- Unlessauthorisedbygeneral or
specificorders, noofficial will communicatetoanother official or a non-official, any
informationor document(s) (includingelectronicdocument(s)) whichhascomeintohis
possessioninthecourseof hisofficial duties.
118. Confidential character of notes/ files-
(1) Thenotesportionof afilereferredbyadepartment toanother will betreatedas
confidential andwill not bereferredtoanyauthorityoutsidethesecretariat and
attachedofficeswithout thegeneral or specificconsent of thedepartment towhich
thefilebelongs. If theinformationisintheelectronicformit will behandledby
authorizedofficial only.
3.2.2 TheManual of OfficeProcedurewasprepared when theRTI Act wasnot in existence.
Theseprovisionsaretotally violativeof theAct and henceneed tobebrought in conformity
with theAct. TheAct alsodefinesinformation tomean any material in any form, including
records, documents, memos, e-mails, opinions, advices, pressreleases, circulars, orders, log
books, contracts, reports, papers, samples, models, datamaterial held in any electronicform
and information relating toany privatebody which can beaccessed by apublicauthority
under any other law for thetimebeing in force. Thusnotingsand filesper sewill not
21 20
TheCentral Civil Services(Conduct) Rules
becomeconfidential and inaccessibleunlessthey areclassified assuch and aredeclared tobe
covered under exemption provisionsof Section 8(1) of theAct. Tobring it in conformity
with theAct, theprovisionsregarding unauthorized communication of official information
and confidential character of notes/ fileswill havetobeamended.
a. Para116of theManual of OfficeProcedureneedsto bereworded as
follows:.
Communication of Official I nformation: EveryGovernment Servant
shall, in performanceof hisdutiesin good faith, communicatetoa member
of publicor anyorganization full and accurateinformation, which can
bedisclosed under theRight toI nformation Act. (Nothingstated above
shall beconstrued aspermittingcommunication of classified information
in an unauthorized manner or for improper gainstoa Government
Servant or others).
b. Para118(1) should bedeleted.
c. TheStateGovernmentsmaybeadvised to carryout similar amendments
in their Manuals, if such provisionsexist therein.
4.1Classification of Information:
4.1.1. Apart fromthesomewhat indiscriminateapplication of OSA toinformation which
wasnot intended tobesecret, amajor contributor tothecultureof secrecy in thegovernment
isthetendency toclassify information even wheresuch classification isclearly unwarranted.
TheGovernment of India has issued detailed instructions pertaining to safeguarding
information in itspossession, theunauthorised disclosureof which would causedamageto
national security or would causeembarrassment totheGovernment in itsfunctioning or
would beprejudicial tonational interest. Theseinstructions, which arecontained in the
Manual of Departmental Security Instructions and theManual of OfficeProcedure, lay
down guidelines to give a security classification to a record based on the degree of
confidentiality required. They also describethemanner in which each of such classified
information should behandled and thepersonswhocan accesssuch information.
4.1.2 TheShourieCommitteeconsidered theissueof classification of information and noted:
A major contributor tothelack of transparencyisthetendencytoclassifyinformationevenwhere
suchclassificationisclearlyunjustified. Thereisalsothetendencytoaccordhigher classification
thaniswarranted. TheManual of Departmental SecurityInstructions, issuedbytheMinistry
of HomeAffairs, andtheManual of OfficeProcedure, whichincorporatessomeof theseinstructions,
dolaydownthecriteriaandguidelinesfor classificationandspecifytheauthoritiescompetent to
authoriseclassificationgradingsviz. TopSecret, Secret andConfidential.
Whilethecriteriafor classificationhaveperhapsnecessarilytobebroad, it isdesirable, inthe
interest of aproper approachtoclassificationthat theyshouldbebackedupbyasuitableillustrative
list for guidanceof officers. Whiledrawingupsuchalist, theprincipletobeadheredtoisthat
ordinarilyonlysuchinformation, aswouldqualifyfor exemptionunder theproposedFreedomof
InformationAct, shouldbeclassified.
4.1.3 TheManual of Departmental SecurityInstructionsdealswith classification of documents
and recordsinvolving national securityand sensitivematters. Onceinformation getsasecurity
classification it movesout of thepublicdomain. Even theRTI Act respectstheneed tokeep
certain information outsidethepublicdomain. Section 8 of theAct listsout theexemptions
CONFIDENTIALITY CLASSIFICATION
4
1 23 22
Right toInformation Master KeytoGoodGovernance TheCentral Civil Services(Conduct) Rules
under which thePIO need not giveinformation. However it isnecessary toharmonise
security classification with theprovisionsof theAct.
4.1.4 Thetask of classifying adocument isvital in thelarger national interest, and should
behandled with great caution asany security classification deniesaccessof information to
public. Thereforeonly officers of sufficient seniority should beempowered to classify
documents. Moreover under theexisting instructions, information onceclassified continues
tobesowithout any timelimit. In other countries, even war secretsarebrought intopublic
domain after alapseof aspecified period, usually 30 years. It isthereforenecessary toreview
such classified documentsafter areasonableperiod of, say 30 years(theperiod can beeven
lessin caseof somedocuments). Thosewhich donot merit classification should then be
declassified and kept in thepublicdomain.
4.1.5 Further, thehierarchy of security classification needstoberationalised, reflecting the
schemeof exemptions under theAct and emerging challenges. TheAct has listed 11
categories(section 8 and 9) of exemption wherein information may not begiven out. These
rangefrom information, disclosureof which would prejudicially affect thesovereignty and
integrity of India, thesecurity, strategic, scientificor economicinterestsof theState, relation
with foreign Stateor lead toincitement of an offence; toinfringement of copyright subsisting
in aperson. TheCommission feelsthat theclassification systemshould broadly cover each
of thesecategoriesof information. It isquitepossiblethat an information fallsunder twoor
morecategoriesof exemptions. In that casetheinformation should begiven theclassification
of thehigher order among theexemptions.
4.1.6 Although the11 categoriesof information arefairly exhaustiveand cover almost all
possiblesituationsfor keeping information secret, somesituationswhich demand secrecy
seemtoremain out of theseexemptionslikeconfidential reportsof officials, and question
papersof examinations. TheCommission feelsthat information in thesecasesshould alsobe
covered by exemptions.
4.1.7 TheCommission studied therecommendationsof theShourieCommittee, and isin
broad agreement with therecommendationsmadeby it.
a. TheGOI should amend theManual of Departmental SecurityInstructions
in thefollowingmanner:
i. Information DeservingClassification (Para3)
It would beadvisablefor each Ministry/Department toidentify
the information which deserves to be given a security
classification. Ordinarily, onlysuch information should be
given a security classification which would qualify for
exemption fromdisclosureunder theRight to Information
Act, 2005. TheClassification of documentsshould bedoneas
per thefollowingguidelines.
Sl.No. Section of theRTI Act to which Classification
information pertains
1 8(1)(a) Top Secret
2 8(1)(b) Confidential
3 8(1)(c) Confidential
4 8(1)(d) Secret
5 8(1)(e) Confidential
6 8(1)(f) Secret
7 8(1)(g) Top Secret/Secret
8 8(1)(h) Secret/Confidential
9 8(1)(i) Confidential
10 8(1)(j) Confidential/restricted
11 9 Confidential/restricted
Explanation: Theabovementioned classification should begenerally
followed. It isquitepossiblethat information maybecovered by
morethan oneexemption; in that casetheinformation should be
given theclassification of thehigher category. Also if it isfelt bythe
competent authoritythat circumstancesof acasedemand ahigher
classification than what isindicated above, then thesamemaybe
done by an authority, which is empowered to give such a
classification.
Provision should bemadeto includeannual confidential reportsof
officersand examination question papersand related mattersin
25 24
TheCentral Civil Services(Conduct) Rules Right toInformation Master KeytoGoodGovernance
theexemptionsunder theRTI Act. Thismaybedonebywayof
removal of difficultiesunder Section 30.
ii. Upgradingand Downgrading(Para2.3)
Documents onceclassified as Top Secretor Secret, should
remain so classified aslongasrequired but not exceeding30years.
Documentsclassified asconfidential and restricted should remain
so for aperiod not exceeding10years. However, thecompetent
classifyingofficer may, for reasons to berecorded in writing,
authorisecontinued classification beyond theperiod prescribed
aboveif information, thedisclosureof which would causedamage
to national securityor national interest. A recipient officer of
appropriaterank in aMinistryor Department mayupgradethe
securityclassification of adocument received fromoutside, but this
raised classification will be limited only to the Ministry or
Department. (S)Hewill, however, haveno authorityto downgrade
thesecurityclassification of adocument received, without the
concurrenceof theoriginator. Within thesameDepartment, an
officer superior to theoriginator would havetheauthorityto
downgradeor upgradetheclassification.
iii. Officer Authorised to Accord theGrading:
TopSecret Not below J oint Secretary
Secret Not below DeputySecretary
Confidential Not below Under Secretary
TheStateGovernmentsmayauthoriseofficersof equivalent rank toaccord
thegrading.
5.1Rightsand ObligationsUnder theAct:
5.1.1 In order toenforcetherightsand fulfil theobligationsunder theAct, building of
institutions, organization of information and creation of an enabling environment arecritical.
Therefore, theCommission hasasafirst step reviewed thestepstaken sofar toimplement
theAct asfollows:
I. BUILDING INSTITUTIONS:
a. Information Commissions
b. Information Officersand AppellateAuthorities.
II. INFORMATION AND RECORD-KEEPING:
a. Suomotu declaration under Section 4.
b. PublicInterest Disclosure.
c. Modernizing recordkeeping.
III. CAPACITY BUILDING AND AWARENESSGENERATION:
IV. CREATION OF MONITORING MECHANISMS:
5.2BuildingInstitutions:
5.2.1Information Commissions: Government of India(GOI) constituted theCentral
Information Commission (CIC) with aChief Information Commissioner and four Information
Commissioners(Section 12). TheCIC hasbeen hearing appealsunder theAct. All thedecisions
of theCIC arebeing posted on thewebsite(http://cic.gov.in). Sofar (ason 3-5-06) 21 States
constituted theStateInformation Commissions(SICs) under Section 1(3). Theprovisionsof
Section 15 cameintoforceat once, therebymeaning that all theStateGovernmentswere
required toconstitutetheir respectiveCommissionsimmediatelyon enactment of theRTI
Act. Thishasbeen accomplished bymost of theStateGovernmentsasbrought out bythe
tablein Annexure-V(1). TheCommission alsoobtained information about thebackground of
theStateChief Information Commissionerssoastoascertain whether all sectionsof societyare
being represented. Thisinformation isalsosummarized in Annexure-V(1).
Part-II - IMPLEMENTATION OF THE RIGHT TO
INFORMATION ACT
RIGHTSAND OBLIGATIONS
5
21 27 26
Right toInformation Master KeytoGoodGovernance
TheAct providesfor selection of CIC and SICsin abipartisan manner, and involvesthe
Leader of theOpposition in theprocess. SincetheAct isapplicabletoall threeorgansof the
State, it would beappropriatetoincludein theselection committeetheChief J usticeof the
SupremeCourt or High Court asthecasemay be. Thiswill inspirepublicconfidenceand
enhancethequality of theselection.
5.2.2 Despitealegal obligation toconstituteInformation Commissions, 6 Stateshavefailed
to do so even 10 months after its enactment. TheStates, which havenot constituted
Information Commissionssofar ( ason 3-5-06), areBihar, J harkhand, Manipur, Sikkim,
Arunachal Pradesh and Mizoram. Thisneedstoberectified immediately.
5.2.3 TheAct allowsfor dispersal of Information Commissionsto provideeasy accessto
citizens. {Section 12(7), 15(7)}. However neither theCIC nor theSICshaveestablished
officesat placesother than theCapitals. For an overly citizen friendly law to beeffectively
implemented it isvital to haveeasy accessin avast country likeours. TheCommission
isthereforeof theview that theCIC should bedispersed in atleast 4 regions. Similarly
the SICs in larger States should be dispersed depending on population density and
geographical area.
5.2.4 TheAct visualizesaCommission wherein theMembersrepresent different sections
of thesociety. TheStateGovernmentsarestill in theprocessof appointing Information
Commissioners, but an analysis of the background of the State Chief Information
Commissionersindicatesthepreponderanceof personswith civil servicebackground.
Members with civil services background no doubt bring with themwideexperience
and an intricate knowledge of government functioning; however to inspire public
confidence and in the light of the provisions of the Act, it is desirable that the
Commissionshavealargeproportion of memberswith non civil servicesbackground.
5.2.5 Recommendations:
a. Section 12 of theAct may beamended to constitutetheSelection
Committeeof CIC with thePrimeMinister, Leader of theOpposition and
theChief Justiceof India. Section 15 maybesimilarlyamended to
constitutetheSelection Committeeat theStatelevel with theChief
Minister, Leader of theOpposition and theChief Justiceof theHigh Court.
b. TheGOI should ensuretheconstitution of SICsin all Stateswithin 3
months.
c. TheCIC should establish 4regional officesof CIC with aCommissioner
headingeach. Similarlyregional officesof SICsshould beestablished in
larger States.
d. At least half of themembersof theInformation Commissionsshould be
drawn fromnon civil servicesbackground. Such aprovision maybemade
in theRulesunder theAct, bytheUnion Government, applicableto both
CIC and SICs.
5.3DesignatingInformation Officersand AppellateAuthorities:
5.3.1 All Union Ministries/Departments havedesignated PIOs thus complying with
thestipulation of designating PIOs. Thereishowever awidevariation in thenumbers
of PIOsappointed, and thelevel of officersappointed {Annexure-V(2)}. Wheremore
than onePIO isappointed for an officean applicant islikely to facedifficulty in accessing
theappropriatePIO. Thusit isdesirableto designateanodal PIO/APIO in such cases.
5.3.2 The Commission also noted that in GOI the level of PIOs varied fromJ oint
Secretary to Under Secretary {Annexure-V(2)}. Ideally thePIO should beof asufficiently
senior rank to beableto accessinformation and furnish it in an intelligibleand useful
manner. At the same time the PIO should be sufficiently accessible to the public.
ThereforetheCommission isof theview that in GOI thereshould beauniformpattern
of appointing an officer of therank of Deputy Secretary/Director asPIO. In respect of
attached and subordinateofficesof GOI and StateGovernments, auniformprescription
of this kind is not possiblebecauseof widevariation in sizeand scopeof functions.
However theprincipleenunciated abovemay beadopted whiledesignating PIOs.
5.3.3 WhileSection 19(1) read with Section 7(3) (b) impliesdesignating an appellate
authority for each PIO, thelaw doesnot specifically providefor designating of appellate
authoritiesasit doesin caseof PIOs. Asaresult thereisavoidableconfusion about the
identification of appellateauthorities. A perusal of thewebsitesof theUnion Ministries/
Departments also shows that whilePIOs areinvariably notified, this is not thecase
with appellateauthorities. Thisomission needsto berectified.
(i) All Ministries/ Departments/Agencies/Officeswith morethan onePIO
haveto designateanodal Assistant Public Information Officer with the
authorityto receiverequestsfor information on behalf of all PIOs. Such
a provision should be incorporated in the Rules by appropriate
governments.
(ii) PIOsin Central Secretariatsshould beof thelevel of atleast Deputy
Secretary/Director. In StateSecretariats, officersof similar rank should
29 28
RightsandObligationsUnder theAct Right toInformation Master KeytoGoodGovernance
benotified asPIOs. In all subordinateagenciesand departments, officers
sufficientlysenior in rank and yet accessibleto public maybedesignated
asPIOs.
(iii) All public authoritiesmaybeadvised bytheGovernment of Indiathat
alongwith thePublic Information Officerstheyshould also designatethe
appellateauthorityand publish both, together.
(iv) Thedesignation and notification of AppellateAuthoritiesfor each public
authoritymaybemadeeither under Rulesor byinvokingSection 30of
theAct.
5.4 OrganisingInformation and Record Keeping:
5.4.1 Pro-active disclosure of important information by governmental agencies
constitutestheessenceof transparency in governance. Keeping in view thisphilosophy,
theAct emphasisessuo motu disclosure{Section 4(1)}, and stipulatespublication of
prescribed information by all public authorities. Ideally in a vast majority of cases,
information sought should be available in these disclosures without recourse to an
application under Section 6. A samplestudy of thedisclosures shows that theseare
often perfunctory and lacking in substance. This underscores the need for devising
protocolsand effectivemonitoring of suo motu disclosures.
5.4.2 Even when thesuo motu disclosureisof an acceptablequality thequestion of its
access still remains. Whilethepresent practiceof web publication should continue
with regular up-dating, thereareinherent limitations in electronic communication.
Thevast majority of peoplewill not haveaccessto computersin theforeseeablefuture.
Also alargenumber of small public officesand villagepanchayatsareunlikely to be
ableto usethismodeof communication. Therefore, aprinted priced publication in the
local language, revised periodically (at least onceayear) should beavailablein each
public office and supplied on demand. Such a publication should be available for
reference, freeof charge. In respect of electronic disclosures, it isnecessary to providea
single portal through which disclosures of all public authorities under appropriate
governmentscould beaccessed, to facilitateeasy availability of information.
5.4.3 Oneimportant classof disclosuresnot covered under theAct ispublic interest
disclosure. Interestingly, it is recognised in many democracies that an honest and
conscientiouspublic servant who isprivy to information relating to grosscorruption,
abuseof authority or graveinjusticeshould beencouraged to discloseit in public interest
without fear of retribution. Therefore, confidentiality of thewhistleblower in such
cases if s(he) seeks it as well as protection fromharassment by superiors should be
integral to thetransparency regime. TheLaw Commission, in its179
th
report (2001)
recommended enactment of PublicInterest Disclosure(Protection) Law. ThisCommission
fully endorsestheview and recommendsasuitablelegislation to protect whistleblowers.
TheCommission will makeadetailed study of thesubject and makeacomprehensive
recommendation in itslater reportson civil servicereformsand ethicsin governance.
5.4.4 Perhapstheweakest link in our information systemisthetotal neglect of record
keeping. TheTenth FinanceCommission took noteof it and recommended special grants
to theStatesfor improving record keeping. Land recordsareprobably themost important
public documentsin any governancesystem. A vast number of peopleneed themasa
proof of title; disputeresolution relies heavily on records; access to credit is usually
dependent on land ownership, and thewholeadministration hinges on theaccuracy
and reliability of land records. Naturally, accessto land recordswill constitutebulk of
therequests for information under theAct at grass roots level. Unfortunately, land
records updating and maintenancehas suffered great neglect after Independence. In
many states, significant proportionsof land
recordsno longer exist; they areoften fragile
when they exist; and comprehensive land
surveyshavenot been carried out over the
past 70 yearsanywherein India. Thisvital
areaof administration, whileit isapart of
land management, also formsan important
part of transparency in governance. A one-
timeeffort to updateall land records, and
ensure proper storage and retrieval is
necessary.
5.4.5 TheCommission noted that even in Union Ministriesand Departmentsthestatus
of recordkeeping is a problemarea {Annexure-V(3)}. In many subordinate offices/
agencies of GOI and StateGovernments, record keeping procedures often do not
exist. And wherethey exist, they arerarely followed. In most cases record keeping
procedures have not been revised for decades. Most significantly the practice of
cataloguing, indexing and orderly storageissingularly absent. Even when recordsare
stored, retrieval of intelligibleinformation isvirtually impossible. It isperhapsbecause
of thissituation that thereisatendency to givebulk unprocessed information rather
than arelevant and intelligiblesummarization. An exampleof this was reported by
BBC News
4
which succinctly putsacrosstheirrelevanceof such an exercise. (Box No.1).
Box No. 1: BBC Newsstory
WhenRakeshShukla, apoor farmer fromthe
central Indianstateof Chhattisgarh, askedlocal
authorities for information on paddy field
purchasesin hisarea, hewashandedabill for
182,000 rupees. Authoritiestold himthat the
bulk of theexpenses-108,000rupeeshadbeen
spent photocopyingover 90,000copiesof official
papersrelatingtothepurchases.Thedocuments
filledanentireroom.
31 30
4
http://news.bbc.co.uk/go/pr/fr/-/2/hi/south_asia/4739306.stm, publishedon 13.03.2006
5.4.6 Whilecommendableeffortshavebeen madeby afew public authoritiesto digitize
their records and storethemin an easily retrievablemanner, thesearelargely pilot
projectslimited to afew islandsof excellence.
5.4.7 Right toInformation would behonoured only if theinformation existsand when it
exists, it is easily retrievableand intelligible. A combination of measures is required to
achievethis: record keeping procedures need to bedeveloped, reviewed and revised;
catalouging, indexing and orderly storageshould bemandatory; all documentsneed tobe
converted intorational, intelligible, retrievableinformation modules. A road map needsto
bemadefor digitizing of records.
5.4.8 Laying down meticulousproceduresand creating required infrastructureby themselves
would not suffice. A permanent mechanismwith sufficient authority, expertise and
responsibility needstobecreated in each government tocoordinateand superviseproper
record-keeping. Thereforean independent PublicRecordsOffice(PRO) should beestablished
in GOI and in each StateGovernment. Several record keeping agenciesalready exist in GOI
and most stateshaveentrusted record keeping toStateArchives, StateGazetteersand State
Record Rooms. Thesecould berestructured and integrated toconstitutethePublicRecords
Office.
5.4.9 ThePublicRecordsOfficewould haveresponsibility tooverseeproper record keeping
in all public officesincluding preparation and up-dating of manuals, modernization and
digitization, monitoring, inspectionsand other relevant functions. ThePublicRecordsOffice
should function under theoverall guidanceand supervision of CIC or SIC, asthecasemay
be.
5.4.10 ThePublicRecordsOfficewould bearepositoryof technical and professional expertise
in management of publicrecords. Adequatefunding needstobeassured for theseagencies.
Asaone-timemeasure, theGOI may allocateoneper cent (1%) of fundsof theFlagship
Programmes
5
for aperiod of fiveyearsfor improving theinfrastructure, creating manuals,
providing technical support and establishing Public Records Offices. GOI may haveto
separately consider creating aspecial fund for survey and updating of land records.
a. Suo motu disclosuresshould also beavailablein theformof printed,
priced publication in theofficial language, revised periodically(at least
onceayear). Such apublication should beavailablefor reference, freeof
charge. In respect of electronic disclosures, NIC should provideasingle
portal through which disclosures of all public authorities under
appropriategovernmentscould beaccessed, to facilitateeasyavailability
of information.
b. Public RecordsOfficesshould beestablished asan independent authority
in GOI and all Stateswithin 6monthsbyintegratingand restructuring
themultipleagenciescurrentlyinvolved in record keeping. ThisOffice
will bearepositoryof technical and professional expertisein management
of public records. It will beresponsiblefor supervision, monitoring,
control and inspection of record keepingin all public offices.
c. Public RecordsOfficewould function under theoverall supervision and
guidanceof CIC/SIC.
d. Asaonetimemeasure, GOI should earmark 1%of thefundsof all Flagship
Programmesfor aperiod of fiveyearsfor updatingrecords, improving
infrastructure, creatingmanualsand establishingthePublic Records
Offices. (An amount not exceeding25% of thisshould beutilized for
awarenessgeneration.)
e. Asaonetimemeasure, GOI maycreateaLand RecordsModernisation
Fund for surveyand updation of all land records. Thequantumof
assistancefor each Statewould bebased on an assessment of thefield
situation.
f. All organizations, which havejurisdiction over an areaequal to or
exceedingadistrict, should befunded and required to completethe
process of digitization by the end of 2009. All sub-district level
organizations should completethis task by theend of 2011. The
controllingMinistries/Departmentsat Union and Statelevel should lay
down adetailed road map for thispurposewith well-defined milestones
within 6months, so that thiscould beimplemented asapriorityitemin
theEleventh FiveYear Plan.
5.5 CapacityBuildingand AwarenessGeneration:
5.5.1 Training programmes: Theenactment of Right toInformation Act isonly thefirst
step in promoting transparency in governance. Thereal challengeliesin ensuring that the
information sought isprovided expeditiously, and in an intelligibleform. Themindset of
thegovernment functionaries, wherein secrecy isthenormand disclosuretheexception,
would requirearevolutionary change. Such achangewould alsoberequired in themindset
33 32
RightsandObligationsunder theAct Right toInformation Master KeytoGoodGovernance
5
Eight flagshipprogrammesare: SarvaSikshaAbhiyan, Mid-dayMeal Scheme, RajivGandhi DrinkingWater
Mission, Total SanitationCampaign, National Rural HealthMission, IntegratedChildServices, National Rural
Employment SchemeandJ awarharlal NehruNational UrbanRenewal Mission.
of citizenswhotraditionaly havebeen reluctant toseek information. Bringing about this
radical changewould requiresustained training and awareness generation programmes.
TheCommissions own experiencein seeking information fromselect public authorities
revealsthat even somePIOsarenot conversant with thekey provisionsof theAct. The
Information CommissionersOfficein theUnited Kingdomhaspublished an Awareness
Guidance seriestoassist publicauthoritiesand, in particular, staff whomay not haveaccess
tospecialist adviceabout someof theissues, especially exemption provisions. Thispractice
may alsobeadopted in India.
5.5.2 Awarenessgeneration: Theenactment of theRight toInformation Act hasled toan
intensedebatein themediaon variousaspectsof freedomof information. Despitethis,
enquiriesreveal that level of awareness, particularly at thegrassrootslevel, issurprisingly
low. In order toachievetheobjectivesof theAct it would benecessary that citizensbecome
awareof their entitlements and theprocesses required to usethis right to improvethe
quality of governance. Awarenessgeneration sofar hasbeen largely confined togovernment
advertisement in print media. An effectiveawarenessgeneration campaign should involve
multi mediaeffortsincluding street plays, television spots, radiojingles, and other mass
communication techniques. Thesecampaignscould beeffectively implemented at low cost,
once committed voluntary organizations and corporates with creativity, passion and
professionalismareinvolved.
5.5.3 Section 26 of theAct statesthat theappropriategovernment may develop and organize
educational programmes to advancetheunderstanding of thepublic, in particular of
disadvantaged communitiesastohow toexercisetherightscontemplated under theAct. It
hasalsobeen mandated that theappropriategovernmentsshall within 18 monthsfromthe
commencement of theAct, compileaguidecontaining such information in asimpleand
comprehensiblemanner. TheCommission feelsthat thisshould bedoneat theearliest as
non availability of such guideisproving tobeahurdlein generation of awarenessabout the
Act.
5.5.4 TheCommission sent aquestionnairetovariousUnion Ministriesand Departments
seeking information on thearrangements/effortsmadeby themtocreateawarenessamong
citizens. Theresponsesof theMinistriesrangefrominformation hasbeen posted on the
website toissueswill beexamined and necessary instructionsissued. Somedepartments
haveconceded that noarrangementshavebeen madesofar. During field visitsconducted
by theCommission it wasnoted that awarenesslevel about thisAct among both members
of thepublicand publicauthorities, particularly at thesub-district and panchayat levelsis
very low.
a. Trainingprogrammesshould not beconfined to merelyPIOsand APIOs.
All government functionariesshould beimparted atleast onedaytraining
on Right to Information within ayear. Thesetrainingprogrammeshave
to beorganized in adecentralized manner in everyblock. A cascading
model could beadopted with abatch of master trainers in each district.
b. In all general or specialized trainingprogrammes, of morethan 3days
duration, a half-day module on Right to Information should be
compulsory.
c. Awareness campaigns may be entrusted to credible non profit
organizations at theStatelevel. They should design amulti media
campaign best suited to theneeds, in thelocal language. Thefunds
earmarked (asmentioned in para5.4.11.d) could beutilized for this
purpose.
d. Appropriategovernmentsshould bringout guidesand comprehensible
information material within theprescribed time.
e. TheCIC and theSICsmayissueguidelinesfor thebenefit of public
authoritiesand public officialsin particular and public in general about
key concepts in theAct and approach to betaken in responseto
information requests on thelines of theAwareness GuidanceSeries
referred to above(para5.5.1).
5.6MonitoringMechanism:
5.6.1 A strong monitoring mechanismis a basic necessity for ensuring successful
implementation of theAct. Themonitoring mechanismapart fromexercising asupervisory
role, should beabletodetect problemsin theprocessof implementation and trigger corrective
measures. Thismonitoring should bedoneat several levelswithin thepublicauthority, for
agroup of authoritiesin aterritory, for awholestateand thecountry. Normally monitoring
isan inhousefunction wheretheimplementing authority itself monitorstheoperations. For
each department/agency, thehead of theorganization will beresponsiblefor monitoring. A
question arisesastowhich agency should beat theapex of themonitoring process. An
option could betoassign thistask tothenodal department in caseof Statesand thenodal
Ministry in caseof GOI. However given their existing functions, noMinistry /Department
would beabletodevotefull attention tothiscomplex and oneroustask.
35 34
5.6.2 TheAct has created independent institutions of CIC and SICs, which areof high
stature. However under thelaw their functionsarelargely limited tohearing complaints
and appeals, and submitting annual reports. When an independent, full timeauthority
exists under the Act it would be most appropriate to entrust it with the important
responsibility of monitoring theimplementation of theAct. Theauthority and public
confidencethesebodies command, theexpertiseand insights they acquire, and their
propensity toexpand citizensrightsfor better governancemakethemideal institutionsto
dischargethisresponsibility.
5.6.3 Need for acoordination mechanism: Although theAct isapplicabletoboth theUnion
and stategovernments, thefield situation variesfromstatetostate. Moreover theState
Information Commissionsareindependent of theCentral Information Commission. It is
likely that many similar issuescrop up beforevariousInformation Commissions. It would
beadvisablein publicinterest if all theInformation Commissionscan shareperspectivesand
experiences. Thiswould avoid duplication of efforts, minimizelitigation and ensureuniform
application of theAct throughout thecountry. Similarly, various public authorities are
evolving their own methodology for implementing theAct. Someof thegood practicesin
astateor publicauthority could beadapted for usein other publicauthorities/statesalso.
Also, for anationwideweb based information dissemination systemtowork effectively it is
necessary tohaveastrong coordination mechanism. For thereasonsstated above, theCIC
would betheideal institution tohead such acoordinating agency.
a. TheCIC and theSICsmaybeentrusted with thetask of monitoring
effectiveimplementation of theRight to Information Act in all public
authorities. (An appropriateprovision could bemadeunder Section 30
bywayof removal of difficulties).
b. Asalargenumber of Public Authoritiesexist at regional, state, district
and sub district level, anodal officer should beidentified wherever
necessarybytheappropriatemonitoringauthority(CIC/SIC) to monitor
implementation of theAct.
c. Each public authorityshould beresponsiblefor complianceof provisions
of theAct in itsown officeaswell asthat of thesubordinatepublic
authorities.
d. A National Coordination Committee(NCC) maybeset up under the
chairpersonship of theChief Information Commissioner with thenodal
Union Ministry, theSICsand representativesof Statesasmembers. A
provision to thiseffect maybemadeunder Section 30of theAct byway
of removingdifficulties. TheNational Coordination Committeewould:
i. serveasanational platformfor effectiveimplementation of theAct,
ii. document and disseminatebest practicesin Indiaand elsewhere,
iii. monitor thecreation and functioningof thenational portal for Right
to Information,
iv. reviewtheRulesand Executiveordersissued bytheappropriate
governmentsunder theAct,
v. carryout impact evaluation of theimplementation of theAct; and
vi. performsuch other relevant functionsasmaybedeemed necessary.
37 36
6.1 Implementation of theAct
6.1.1 Theimplementation of theRTI Act isan administrativechallengewhich hasthrown
up various structural, procedural and logistical issues and problems, which need to be
addressed in theearly stages. TheCommission hasidentified someof theproblemareasin
implementation and thesearediscussed and recommendationsmadefor their redressal in
thefollowing paras.
6.2FacilitatingAccess:
6.2.1 For seeking information, a
process as prescribed under the
Act hastobeset in motion. The
trigger isfiling of arequest. Once
therequest is filed theonus of
responding to it shifts to the
government agency. The steps
involved in processing arequest
for information aregiven in the
chart in Fig.-1.
6.2.2 Based on thecasestudies
conducted by theCommission,
responsesof variousMinistriesto
aquestionnaire, and interactions
with thestakeholders, anumber
of difficulties/impedimentswere
noted:
Complicated system
of accepting
requests.
Insistenceon demand drafts.
6
ISSUESIN IMPLEMENTATION
Box-2-Difficultyinfilingapplication
Applicationrequestingfor informationinthreepartswasmadeunder
Right toInformation Act 2005totheMinistry of Water Resources
on20.01.2006at ShramShakti Bhawan, NewDelhi. Theapplication
feeof Rs.10/- (incash)wasenclosedwiththeapplication. TheCPIOs
Officeinformed theapplicant that therewas no arrangement for
receipt of cashat hisoffice. Hedirectedtheapplicant tothePayand
AccountsOfficeof theMinistryat Shastri Bhawan, NewDelhi, where
thefeewas finally deposited. TheCPIOs Officeat ShramShakti
Bhawanacceptedtheapplicationonthebasisof payment of fee(the
applicant hadanofficial passsohehadnoprobleminenteringthe
building).
Box-3-Cost of abank draft
Information was sought fromDepartment of Industrial Policy &
Promotion. Applicationwasmadeon23.1.2006. Theapplicant went
toUdyogBhawan, whichhousesthisDepartment. At theReception,
therewasaboard, whichdisplayedthenameof theCPIO. Hisoffice
informedthat therequisitefeeisnot acceptableincashandademand
draft infavour of PayandAccountsOfficer, Department of Industrial
Policy&Promotionwill havetobemade. A servicechargeof Rs.35/
- hadtobepaidtothebank for issuingademanddraft of Rs.10/-.
Thus, for afeeof Rs.10/-, theapplicant hadtoincur acost of Rs.45/
-. On thebasis of thedemand draft theOfficeof theconcerned
CPIO acceptedtheapplication
Difficultiesin filing applicationsby post.
Varying and often higher ratesof application fee.
Largenumber of PIOs.
6.2.3 Complicated systemof accepting requests: Whileaccepting applications, Departments
insist that cash bepaid at theaccountsoffice. In Ministries, theaccountsofficeand thePIOs
officearedifferent and at timesin different locations. TheRulesalsoprescribethat for each
extrapageof information, Rs. 2 hastobepaid, for which theapplicant hastogothrough
FIG. 1FLOWCHART OFTHEPROCESSESINVOLVED IN GIVING INFORMATION UNDER RTI ACT
39 38
IssuesinImplementation
thesameprocess. Thedifficulty would get further pronounced in field offices, many of
which donot haveprovision tocollect cash. Moreover, getting avisitorspasstoenter a
government building resultsin unwarranted wait times(especially, when thePIO responsible
might not beavailableowing toanumber of other responsibilitieswhich (s)hehandles).
Therefore, theprocessof filing requestsfor information needstobesimplified.
6.2.4 Insistenceon demand drafts: Though thereisaprovision topay feesthrough bank
drafts, thisposesanother problem, asthebank chargesRs35 toprepareademand draft of
Rs10. Thereforetheinsistenceby somedepartmentstoreceivefeesonly through demand
draftsand not in cash needstobedispensed with.
6.2.5 Difficulties in filing applications by post: Under theexisting dispensation, filing
applicationsby post would necessarily involvepayment of theapplication feeby way of
demand draft or Bankerscheque. Thereforetherehastobeamechanismby which requests
for information aremadepossiblethrough post.
6.2.6 Varying and often higher ratesof application fee: Different Stateshaveprescribed
different feesin thisregard. TheTamil Nadu Right toInformation (Fees) Rulesprovides
that an application feeof Rs50 hastobepaid for each request. During itspublichearing in
Chennai, theCommission was informed that this high rateof fees discouraged filing of
applicationsunder theAct. Thereforethereisaneed toharmonisethefeestructure.
a. In addition to theexistingmodesof payment, appropriategovernments
should amend theRulesto includepayment through postal orders.
b. Statesmayberequired to frameRulesregardingapplication feewhich
arein harmonywith theCentral Rules. It needsto beensured that thefee
itself doesnot becomeadisincentive.
c. Appropriategovernmentsmayrestructurethefees(includingadditional
fees) in multiplesof Rs5. {e.g. instead of prescribingafeeof Rs. 2per
additional pageit maybedesirableto haveafeeof Rs. 5for every3pages
or part thereof}.
d. State Governments may issue appropriate stamps in suitable
denominationsasamodeof payment of fees. Such stampswould beused
for makingapplicationsbeforepublic authoritiescomingwithin the
purviewof StateGovernments.
e. Asall thepost officesin thecountryhavealreadybeen authorized to
function asAPIOson behalf of Union Ministries/Departments, theymay
also beauthorized to collect thefeesin cash and forward areceipt along
with theapplication.
6.3. Inventoryof Public Authorities:
6.3.1 TheAct definespublicauthoritiestoincludeavast array of institutionsand agencies.
For peopletoaccessinformation, acatalogued and indexed list of all publicauthoritiesis
necessary. In avast and diversecountry with afederal structure, listing out all thepublic
authoritiesisa Herculean task. Thereforean inverted treeconcept could befollowed to
havean inventory of all publicauthorities. Starting fromMinistriesof GOI, each Ministry
should havedetailsof all publicauthoritiesimmediately under itscontrol. Similarly each
publicauthority should havean exhaustivelist of agenciesand officesunder itsimmediate
control. Thisshould befollowed till thelowest publicauthority in thehierarchy isreached.
Thisconcept isexplained in AnnexureVI(1).
a. At theGovernment of Indialevel theDepartment of Personnel and
Traininghasbeen identified asthenodal department for implementation
of theRTI Act. Thisnodal department should haveacompletelist of all
Union Ministries/ Departmentswhich function aspublic authorities.
b. Each Union Ministry/ Department should also havean exhaustivelist of
all public authorities, which comewithin its purview. Thepublic
authoritiescomingunder each ministry/ department should beclassified
into (i) constitutional bodies, (ii) lineagencies, (iii) statutorybodies, (iv)
public sector undertakings, (v) bodiescreated under executiveorders,
(vi) bodiesowned, controlled or substantiallyfinanced, and (vii) NGOs
substantiallyfinanced bygovernment. Within each categoryan up-to-
datelist of all public authoritieshasto bemaintained.
c. Each public authorityshould havethedetailsof all public authorities
subordinateto it at theimmediatelynext level. Thisshould continuetill
thelast level isreached. All thesedetailsshould bemadeavailableon the
websitesof therespectivepublic authorities, in ahierarchical form.
d. A similar systemshould also beadopted bytheStates.
6.4 SingleWindowAgencyat District Level:
6.4.1 After sufficient awarenessgeneration, it isexpected that alargenumber of requests
for information would cometo thefield level Public Authorities. Presently almost all
departmentsand agenciesof theStateGovernment arerepresented at theDistrict level. All
theseofficesareoften dispersed and most citizenswould beunawareof their location. Under
such circumstancesit becomesdifficult for an applicant toidentify thePublicAuthority and
tolocateit. Thereforeit isnecessary tohaveaSingleWindow Agency, which could receive
41 40
Right toInformation Master KeytoGoodGovernance IssuesinImplementation
requestsfor information on behalf of thepublicauthorities/PIOswhich havejurisdiction
over thedistrict and then forward themtotherespectivepublicauthority/PIO. This, apart
fromhelping thepublicwould alsohelp in keeping track of theapplications.
6.4.2Recommendation:
a. A SingleWindowAgencyshould beset up in each District. Thiscould be
achieved bycreatingacell in adistrict-level office, and designatingan
officer astheAssistant Public Information Officer for all public authorities
served bytheSingleWindowAgency. Theofficeof theDistrict Collector/
DeputyCommissioner, or theZillaParishad iswell suited for location of
thecell. Thisshould becompleted byall Stateswithin 6months.
6.5. SubordinateField Officesand Public Authorities
6.5.1 Public authority hasbeen defined asany authority or body or institution of self-
government established or constituted by or under theConstitution, by any other law made
by Parliament, by StateLegislatures, and by any notification issued by theappropriate
Government, including institutionssubstantially funded by theappropriateGovernment.
Thiswould extend thespread of publicauthoritiestothelevel of panchayatsand village
patwarisacrossthecountry.
6.5.2 Under Section 5 of theAct, publicauthoritieshavetoappoint PublicInformation
Offcers/Assistant PublicInformation Officers(PIOs/ APIOs). Different publicauthorities
haveadopted different approachestowardsdischargeof theseresponsibilities. For example,
theCentral Silk Board hasappointed onePIO for theentireorganization and anumber of
APIOsfor itsHead Quartersaswell asvariousField Units. TheIncomeTax Department
hasappointed alargenumber of CPIOs, mainly at thelevel of Commissionersat thefield
level, leaving theRangeofficesgenerally unattended. Similarly, PIOsareoften conspicuous
by their absenceat theBlock and Talukalevelsin theStates. In other words, theexperience
sofar suggeststhat lower tiersof theGovernment haveneither been considered asPublic
Authoritiesnor havePIOsbeen designated.
6.5.3 Even aliteral interpretation of thelaw indicatesaconsiderableoverlap between PIOs/
APIOsand publicauthorities. According tothedefinition in theAct, lower tiersof field
formationsshould betreated asPublicAuthorities. Whilethesetiersof administration may
beappointed asAPIOsby thehigher authoritiesof their respectiveorganizations, these
tiersper sewould alsoqualify asPublicAuthoritiesfor their own internal functioning. This
would in turn cast on themtheresponsibility of making suomotu disclosureof information
under Section 4 of theAct. Currently, thisisnot being done. However, theintention of the
Act istoreach astagewheresuomotu disclosureof information by institutionsin itself
takescareof citizens need for information. Thereforepublicauthoritiesat thelower end of
the administrative and/or functional hierarchies need to be identified to discharge
responsibilitiesunder Section 4 of theAct, asthey areclosest tothepeopleboth physically
and functionally.
6.5.4Recommendation:
a. Thelowest officein anyorganization which hasdecision makingpower
or isacustodian of recordsshould berecognized asapublic authority.
6.6Application to Non Governmental Bodies:
6.6.1 Under theAct, anon-governmental body needs to besubstantially financed by
government tobecategorized asapublicauthority under theAct. Thereishowever no
definition of substantially financed.
6.6.2 A comparison with lawsof other countriesrevealsinteresting facts. Section 5 of the
FOI Act (UK) gives theSecretary of State, power to designateprivateorganisations as
publicauthoritiesif either they appear tohimtobeperforming functionsof apublicnature;
or they arecarrying out functions under contract with apublic authority which would
otherwisebeup totheauthority toprovide. In caseof charities, theUK Act appliesonly
when they areset up by theCrown, statuteor agovernment department and haveat least
onenomineeof theCrown or thegovernment department. A small number of wholly
publicly-owned companiesaresubject totheFreedomof Information Act in UK but the
vast majority of privatecompaniesarenot.
6.6.3 ThePromotion of AccesstoInformation Act, South Africa, goesastep further.
Publicbody means
(a) anydepartment of stateor administrationinthenational or provincial sphereof government
or anymunicipalityinthelocal sphereof government; or
(b) anyother functionaryor institutionwhen
(i) exercisingapower or performingadutyintermsof theConstitutionor aprovincial
constitution; or
(ii) exercisingapublicpower or performingapublicfunctionintermsof anylegislation;
6.6.4 Besides, under Section 50 of theSouth African Act, it isprovided that:
50. (1) A requester must begivenaccesstoanyrecordof aprivatebodyif
(a) that recordisrequiredfor theexerciseor protectionof anyrights;
43 42
6.6.5 In thewakeof outsourcing of functions which traditionally wereperformed by
government agencies, it is desirablethat institutions that enjoy anatural monopoly, or
whosefunctionsimpingeon citizens livessubstantially, must comeunder theprovisionsof
theRTI Act. Alsoit may bedesirabletodefinewhat substantially financed would mean,
otherwisedifferent authoritiesmay interpret thisin different ways.
a. Organisations which performfunctions of apublic naturethat are
ordinarilyperformed bygovernment or itsagencies, and thosewhich
enjoynatural monopolymaybebrought within thepurviewof theAct.
b. Normsshould belaid down that anyinstitution or bodythat hasreceived
50% of itsannual operatingcosts, or asumequal to or greater than Rs.1
croreduringanyof thepreceding3yearsshould be understood to have
obtained substantial funding fromthegovernment for theperiod and
purposeof such funding.
c. Anyinformation which, if it wereheld bythegovernment, would be
subject todisclosureunder thelaw, must remain subject tosuch disclosure
even when it istransferred to anon-government bodyor institution.
d. Thiscould beachieved bywayof removal of difficultiesunder section 30
of theAct.
6.7 TimeLimit for Information Beyond 20Years:
6.7.1 RTI Act stipulatesthat:
(3) Subject totheprovisionsof clauses(a), (c) and(i) of sub-section(1), anyinformation
relatingtoanyoccurrence, event or matter whichhastakenplace, occuredor happenedtwenty
yearsbeforethedateonwhichanyrequest ismadeunder section6 shall beprovidedtoanyperson
makingarequest under that section:
6.7.2 A uniformlimit of 20 yearsmay on afew occasionsposeproblemsfor thePublic
Authoritiesaswell astheapplicants. Thereisasignificant percentageof recordswhich is
permanent in nature. Theseincludetherecords of rights maintained by theStateLand
RevenueDepartment, theRegistrarsand Sub Registrarsof Lands, important Court Rulings,
important filesregarding policy decisionsin variousPublicAuthorities, Birth and Death
Registrationsetc. In such casesrequestsarereceived for eventswhich may bewell beyond
20 years.
6.7.3 On theother hand most publicrecordsarenot maintained for 20 years. Thisisprescribed
by theManual of OfficeProcedurein theGovernment of India. Similar Manualsalsoexist
in theStateGovernments.
6.7.4 TheManual of OfficeProcedureof Central Secretariat prescribesthat:
111 RecordRetentionSchedule-
(1) Toensurethat filesareneither prematurelydestroyed, nor kept for periodslonger than
necessary, everydepartment will:
(a) inrespect of recordsconnectedwithaccounts, observetheinstructionscontainedinAppendix
13 totheGeneral Financial Rules;
(b) inrespect of records, relatingtoestablishment, personnel andhousekeepingmatterscommon
toall departments, followthescheduleof periodsof retentionfor recordscommontoall
departments issuedbytheDepartment of AdministrativeReformsandPublicGrievances;
(c) inrespect of recordsprescribedinthisManual, observetheretentionperiodsspecifiedin
Appendix28; and
(d) inrespect of recordsconnectedwithitssubstantivefunctions, issueadepartmental retention
scheduleprescribingtheperiodsfor whichfilesdealingwithspecifiedsubjectsshouldbe
preservedinconsultationwiththeNational Archivesof India.
(2) Theaboveschedulesshouldbereviewedat least oncein5 years.
Under Appendix28, retentionperiodhasbeenprescribedrangingfrom1 year topermanent
retention, for different categoriesof documents.
6.7.5 Theneed for harmony between therecordkeeping proceduresand thestipulations
under theAct isobvious.
a. Thestipulation of makingavailable20-year old recordson request should
beapplicableonlyto thosepublic recordswhich need to bepreserved for
such aperiod. In respect of all other records, theperiod of availability
will belimited to theperiod for which theyshould bepreserved under
therecord keepingprocedures.
b. If anypublic authorityintendsto reducetheperiod upto which any
categoryof record isto bekept, it shall do so after takingconcurrenceof
the Public RecordsOfficeassuggested in para5.4.11.
45 44
c. Theserecommendationscould beimplemented bywayof removal of
difficultiesunder Section 30of theAct.
6.8Mechanismfor Redressal of Public Grievances:
6.8.1 In alargenumber of casesinformation sought tobeaccessed stemsfromagrievance
against adepartment/ agency. Information isthestarting point in acitizensquest for justice
and is not an end in itself. Information thus becomes ameans to fight corruption and
misgovernance or obtain better services.
6.8.2 Experiencehas shown that functionaries/departments tend to be defensiverather
than proactivein redressing agrievance(or even in disclosing information) particularly
when it directly pertainstotheir conduct (or misconduct). Thisproclivity underlinesthe
need for an independent forumtohear complaintsintoactsof omission and commission,
harassment, corruption etc. which emergeeither through information collected under the
Right toInformation Act or otherwise. Such an independent body should hear thecitizen
and thepublicauthority, cometoan early conclusion about how thecomplaint can bebest
redressed, and wheredereliction of duty isestablished, recommend initiation of disciplinary
actions, and alsosuggest systemicreformswhererequired.
6.8.3 A successful exampleof thismechanismisthePublicGrievancesCommission (PGC)
set up by theDelhi Government in 1997. When theDelhi Right toInformation Act came
intoforcein 2001, thePGC wasmadetheappellateauthority todecideappealsunder the
Act. Becauseof thisarrangement thePGC hasbecomean effectivesinglewindow authority
which facilitates access to information and
when required provides a platform for
redressing thecitizensgrievancesaswell. The
PGC has also effectively used its statutory
status and authority under Delhi RTI Act
combined with its non-statutory grievance
redressal powerstofoster systemicreforms.
6
6.8.4 Taking noteof thissuccessful administrativearrangement, theCommission isof the
view that similar arrangementscould bereplicated (with suitablemodifications) by other
states. A beginning could bemadewith bigger cities. Thiscan beeither asingleauthority
likethePGC or aseparateindependent publicgrievanceredressal authority, which worksin
closecoordination with SIC or district SingleWindow Agency.
(i) Statesmaybeadvised to set up independent public grievancesredressal
authoritiesto deal with complaintsof delay, harassment or corruption.
Theseauthoritiesshould work in closecoordination with theSICs/District
SingleWindowAgencies, and help citizensuseinformation asatool to
fight against corruption and misgovernance, or for better services.
6.9Frivolousand VexatiousRequests:
6.9.1 Thehighlight of theAct isthat theinformation seeker shall not berequired togive
any reason for requesting theinformation .. or any other personal details.. Thissalutary
provision isimportant toensurethat thethereisnosubjectiveevaluation of therequest, or
denial on speciousgrounds. However certain instanceshavebeen brought tothenoticeof
theCommission in which therequestswerepatently frivolousor vexatious(or malafide).
Therearealsocasesin which publicservantsunder a cloud and facing gravedisciplinary
chargeshaverepeatedly attempted tousetheAct tointimidate, harassor at timeseven
humiliateseniorswith requeststhat havebeen vexatious. If safeguardsarenot provided in
such situations, therecould bethreedangers. First, such frivolousor vexatiousrequestsmay
overwhelmthesystemand defeat thevery purposeof theAct. Second, theeven tenor of the
administration may beparalysed, seriously undermining delivery of services. Third, if public
servantsfacing seriouschargessuccessfully resort tosuch tacticsdirectly or through proxies
it maylead tobreakdown of discipline, insubordination and disharmonyin publicinstitutions.
TheCommission thereforefeelsthat adequatesafeguardsshould beprovided against vexatious
and maliciousrequests, even asnofettersareimposed on citizensseeking information in
accordancewith theletter and spirit of section 6(2).
TheCommission examined therelevant legal provisonsand practicesin other countries.
Section 14 of Freedomof Information Act (UK) readsasfollows:
14. (1) Section1(1) doesnot obligeapublicauthoritytocomplywitharequest for information
if therequest isvexatious.
(2) Whereapublicauthorityhaspreviouslycompliedwitharequest for informationwhichwas
madebyanyperson, it isnot obligedtocomplywithasubsequent identical or substantially
similar request fromthat personunlessareasonableinterval haselapsedbetweencompliance
withthepreviousrequest andthemakingof thecurrent request.
TheSouth African Act alsohasasimilar provision. Section 45 of theAct readsasfollows:
45. Theinformationofficer of apublicbodymayrefusearequest for accesstoarecordof thebody
if
Box-4Public GrievancesCommission
Anappeal involvingarequest for informationasto
whytheRegistrationDepartment continuedtouse
antiquatedrulestoregister landtransactionsledto
thePGC commissioninganindependent report on
theworkingof theRegistrationDepartment, with
recommendationsfor itsreforms.
47 46
6
BasedonReformingPublicServicesinIndia-A WorldBank Report
IssuesinImplementation
(a) therequest ismanifestlyfrivolousor vexatious: or
(b) thework involvedinprocessingtherequest wouldsubstantiallyandunreasonablydivert
theresourcesof thepublicbody.
After careful examination of theseprovisionstheCommission isof theview that the
South African law addressestheproblemeffectively, even asthecitizensright to
information isfully protected.
6.9.4 It hasalsobeen brought tothenoticeof theCommission that theremay becases
wheretheefforts in compiling information may not becommensuratewith theresults
achieved. Even in caseof furnishing information toParliament thereisastipulation that a
question which clearly relatestoday-to-day administration and asksfor collection of facts
pertaining totheMinistriesentailing prolonged labour and timenot commensuratewith
resultsachieved isordinarily disallowed
7
. TheCommission feelsthat requestsfor information,
thecollection and compilation of which would requireeffort not commensuratewith the
output may bedisallowed.
However all precautionsmust betaken toensurethat genuinerequestsfor information are
not branded asfrivolous or vexatious. Nor should information bedenied casually on the
ground that the work involved in processing the request would substantially and
unreasonably divert theresourcesof thepublicbody. Thereforeasafeguard needstobe
inserted in all such casesof refusal, sothat thereisgreater scrutiny by ahigher authority and
amandatory referencetoCIC/SIC, asthecasemay be.
a. Section 7maybeamended to insert sub section (10) asfollows:
ThePI O mayrefusea request for information if therequest ismanifestly
frivolousor vexatious.
Provided that such a refusal shall becommunicated within 15 daysof receipt
of application, with theprior approval of theappellateauthority.
Provided further that all such refusalsshall stand transferred toCI C/SI C, as
thecasemaybeand theCI C/SI C shall disposethecaseasif it isan appeal
under section 19(3) of theRTI Act.
7
Handbook for Membersof Lok Sabha
b. It maybeprovided that information can bedenied if thework involved
in processingtherequest would substantiallyand unreasonablydivert
theresourcesof thepublic body.
Provided that such arefusal shall becommunicated within 15daysof receipt
Provided further that all such refusalsshall stand transferred to CIC/SIC, as
thecasemaybeand theCIC/SIC shall disposethecaseasif it isan appeal
Thismaybeaccomplished bywayof removal of difficultiesor framingof
appropriateRules.
49 48
7.1Most of theobservationsand recommendationsof theCommission in thisReport apply
largely totheExecutivebranch of government. TheLegislatureand Judiciary arealsocovered
by theAct. Thedefinition of publicauthority {Section2(b)} includesany authority, or body,
or institutionsof self government, established or constituted by or under theConstitution,
or any law madeby Parliament or StateLegislature, or by anotification or order of the
appropriategovernment. Section 2(e) thereforeincludes, thepresiding officers of the
Legislatureat theUnion and Statelevelsaswell astheChief J usticesof theSupremeCourt
and High Courts. Theintent of theParliament tomakethelaw applicabletoall public
institutionsincluding theLegislatures and J udiciary isclearly evident.
7.2 In theExecutivebranch, traditionally secrecy has been thenormthroughout the
world, soalsoin India. TheLegislaturesand theJ udiciary in Indiaalready operatewithin
thepubliceyetoafar greater extent than theExecutive. Theproceedingsof theLegislatures
areopen topublicand mediaand even telecast livein recent years. Themeetingsof Legislative
Committees, however aregenerally not open tothepublicand media. Nevertheless, most
of thefunctioning of theLegislatureisin full publicgaze. Similarly, all judicial processesare
in thepublicdomain and hencetotally transparent. But administrativeprocesseswithin the
courtswould havetobebrought within theambit of thislaw, at thesametime, without
compromising with theindependenceand thedignity of thecourts. Thereisneed tobring
uniformity in theinformation recording systems, introducestandard formsand abetter
systemof classification of cases. TheAct may beused asan instrument tobuild capacity to
evolveefficient systemsof information dissemination.
7.3 TheCommission carefully studied theapplication of theAct totheLegislatureand the
J udiciary. The Commission also interacted with experts and jurists. Most of the
recommendationspertaining totheimplementation of theAct apply toboth theLegislatures
and theJ udiciary. TherespectiveCompetent Authoritiesmay adopt themwith appropriate
modificationstosuit institutional requirements. However, afew issuesespecially applicable
tothesetwoorgansof Stateneed tobehighlighted.
7
APPLICATION OF THE ACT TO THE LEGISLATURE
AND THE JUDICIARY
7.4 Legislaturesarestorehousesof enormousamount of information on publicpoliciesand
executiveactions. However, therearetwoproblems. First theinformation isdisaggregated
and not adequately synthesised. Thus, on thesamesubject thereareseveral separate
documents, often chronologically arranged, without sectoral linkages. Second, while
information isavailabletolegislators, it isvery hard for citizenstoaccessit. In order to
addresstheseissues, all information with thelegislaturesneedstobeindexed, catalogued
and computerised, with onlineaccess to all citizens and supply on demand. This access
should beprovided aspart of theproactivedisclosurerequirement under Section 4 of the
Act.
7.5 Apart fromlaw making, theLegislatureexercisesoversight function over theExecutive
branch. Parliamentary (Legislative) questions, proceedingsof variouscommittees, follow up
action on thereportsof CAG, action taken reportssubmitted by thegovernment areafew
vital mechanismsfor such legislativeoversight. However, except through mediareports,
thecitizensrarely havedirect accesstosuch information. Thislacunaneedstobeaddressed
bymaking all such information availabletothepublicboth online(electronic) and on demand
(print).
7.6 Equally important isacomputerised tracking mechanism, sothat thelegislatorsaswell
as thegeneral public can tracethesequenceof events and complianceby theexecutive
agencies on matters likepetitions, CAG reports and action taken on reports of enquiry
commissionsor Housecommittees.
7.7 In most democracies, amajor part of thelegislativework isconducted in Committees.
AsWoodrowWilson onceobserved, Congressin session isCongresson exhibition; Congress
in CommitteesisCongressat work. In Indiatoo, most of theimportant legislativework is
conducted in theCommittees, away frompartisan influences and transient emotions.
However, thework of legislativecommitteesin Indiahasgenerally been away fromthe
publicand mediagaze. With theregimeof transparencybeing institutionalised, such seclusion
of legislativecommitteesisunsustainable. Thespirit of democracy aswell astheletter of
law demandsthat all work of legislativecommittees, saveon mattersexempted frompublic
gazeunder theAct for reasonsof stateor privacy, should bethrown open topublicand
media. But therearegenuineconcernsrelating topublictransaction of legislativecommittees
business. At times, in thefull houseof alegislature, memberstend toplay tothegalleriesto
capturemediaattention, or takeapartisan lineor extremeposition. Thedebatesin legislatures
thustend tobeon predictablelines, and often polarisesociety instead of bringing sobriety
and moderation. Such moderation and abilitytoreconcileconflicting interestsaretheessential
functionsof democraticpolitics. In Committees, away fromtheheat of passion, legislators
usually act with great moderation and bring depth and substancetodiscussion on public
51 50
Applicationof theAct totheLegislatureandtheJ udiciary
policy. Bipartisan consensus and balanced consideration of issues is thehallmark of a
Committeeswork. Therecould betherisk of thisadvantagebeing jeopardised by throwing
open theCommitteeswork topublicand media.
7.8 TheCommission hascarefully examined thesecompeting considerations. It isof the
considered view that on balancethedictatesof democracy and transparency should prevail.
Thelegislativepartiesshould evolveaconsensusin order toretain thebest featuresof the
Committeesystemeven asthework of Committeesisopened topublicgaze.
7.9 Asmentioned earlier thejudicial processesaretransparent. Even on theadministrative
front, thelast decadehasseen major stridesmadebyjudiciaryin useof information technology
for better court management and providing information tothelitigants. In theSupreme
Court of Indiaand all High Courts, fresh casesarefiled only beforethecomputerized filing
counters; causelistsaregenerated automatically by thecomputer and manual intervention
hasbeen eliminated resulting in generation of CauseList in timewithout any hurdles; a
software(COURTNIC)
8
provides SupremeCourts pending casestatus information to
litigants/advocateson any nodeof NICNET; TheSupremeCourt of Indiaand all the18
High Courtsand their Benchesarefully computerised, and all thesecourtsgeneratedaily
and weekly causelists fromthecomputer servers installed by NIC. TheGovernment of
Indiahasapproved aproposal for computerisation of thedistrict and subordinatecourts.
7.10 A prerequisitefor making theadministrativeprocessesin thedistrict and thesubordinate
courtstotally transparent istheir computerisation. Thisisnecessitated becauseof thesheer
volumeof recordshandled. Furthermore, therecordsof thesecourtsrequirescientificstorage,
indexing and cataloguing thereby facilitating easy access.
7.11Recommendations:
a. A systemof indexingand cataloguingof recordsof thelegislatures, which
facilitateseasyaccessshould beput in place. Thiscould bebest achieved
bydigitisingall therecordsand providingaccessto citizenswith facilities
for retrievingrecordsbased on intelligiblesearches.
b. A trackingmechanismneedsto bedeveloped so that theaction taken by
theexecutivebranch on variousreportslikeCAG, Commissionsof Enquiry
and HouseCommitteesisavailableto legislatorsand public, online.
c. Theworkingof thelegislativecommitteesshould bethrown open to the
public. Thepresidingofficer of thecommittee, if required in theinterest
of Stateor privacy, mayhold proceedingsin camera.
d. Therecordsat thedistrict court and thesubordinatecourtsshould be
stored in ascientific way, byadoptinguniformnormsfor indexingand
cataloguing.
e. Theadministrativeprocessesin thedistrict and thesubordinatecourts
should becomputerised in atimebound manner. Theseprocessesshould
betotallyin thepublic domain.
53 52
Applicationof theAct totheLegislatureandtheJ udiciary Right toInformation Master KeytoGoodGovernance
8
http://indiancourts.nic.in/courtnicmore.htm
8
8.1 Power to RemoveDifficulties:
8.1.1 Section 30 of theAct stipulatesasfollows:
30 (1) If anydifficultyarisesingivingeffect totheprovisionsof thisAct, theCentral Government
may, byorder publishedintheOfficial Gazette, makesuchprovisionsnot inconsistent withthe
provisionsof thisAct asappear toit tobenecessaryor expedient for removal of thedifficulty:
Providedthat nosuchorder shall bemadeafter theexpiryof aperiodof twoyearsfromthedate
of thecommencement of thisAct
8.1.2 Theimplementation of theAct isyet tostabilizeand it isperhapstooearly toidentify
difficultiesthat may beencountered. TheCommission however hasidentified someinitial
difficulties which could impedesmooth implementation of theAct. Thesehavebeen
highlighted in thepreceding chaptersof thisReport. Someof thesewould requiretaking
recoursetoSection 30 of theAct. Thesearereproduced below for ready reference:
(i) All organisationslisted in theSecond Schedulehaveto appoint PIOs.
Appealsagainst ordersof PIOsshould liewith CIC/SICs. (para2.5.6.c)
(ii) Provision should bemadeto includeannual confidential reports,
examination question papersand related matters in theexemptionsunder
theRTI Act. (para4.1.8.a.i)
(iii) Provision hasto bemadefor designation and notification of Appellate
Authorityfor each public authority. (para 5.3.4.iv)
(iv) TheCIC and theSICsshould beentrusted with thetask of monitoring
effectiveimplementation of Right toInformation in all public authorities.
(para5.6.4.a)
(v) A National Coordination Committee(NCC) maybeset up under the
of removingdifficulties. (para5.6.4.d)
REMOVAL OF DIFFICULTIES
(vi) Thefollowingnormsshould befollowed for determiningapplicabilityof
theAct to non governmental organizations.
a. Organisations which perform functions that are ordinarily
performed bygovernment or itsagencies, and thosewhich enjoy
natural monopolyshould bebrought within thepurviewof theAct.
b. Normsshould belaid that anyinstitution or bodythat hasreceived
50% of itsannual operatingcosts, or asumequal to or greater than
Rs.1crore, duringanyof thepreceding3yearsshould be understood
to haveobtained substantial funding fromthegovernment for
theperiod and purposeof such funding.
c. Anyinformation which, if it wereheld bythegovernment, would
besubject to disclosureunder thelaw, must remain subject to such
disclosureeven when it istransferred to anon-government bodyor
institution. (para6.6.6. a, b &c)
(vii) Thestipulation of makingavailable20-year old recordson request should
beapplicableonlyto thosepublic recordswhich need to bepreserved for
such aperiod. In respect of all other records, theperiod of availability
If anypublic authorityintendsto reducetheperiod upto which any
theCIC/SIC asthecasemaybe. (para6.7.6.a& b)
(viii) It maybeprovided that information can bedenied if thework involved
theresourcesof thepublic authority.
Provided that such arefusal shall becommunicated within 15daysof
receipt of application, with theprior approval of theappellateauthority.
Provided further that all such refusalsshall stand transferred to CIC/SIC,
asthecasemaybeand theCIC/SIC shall disposethecaseasif it isan
appeal under section 19(3) of theRTI Act. (para6.9.5.b)
55 54
Removal of Difficulties
9
9.1 TheRight toInformation law of 2005 signalsaradical shift in our governanceculture
and permanently impactsall agenciesof state. Theeffectiveimplementation of thislaw
dependson threefundamental shifts: fromtheprevailing cultureof secrecy toanew culture
of openness; frompersonalized despotismto authority coupled with accountability; and
fromunilateral decision making toparticipativegovernance. Obviously onesinglelawcannot
changeeverything. But thisfinelegislation isan important beginning. Itseffectiveapplication
dependslargely on theinstitutionscreated, early traditionsand practices, attendant changes
in lawsand procedures, and adequateparticipation of peopleand thepublicservants. The
Commission, therefore, focused on twobroad categoriesof issues:
9.2 Thefirst set of issues relates to changes in other laws and practices involving state
secrets, civil serviceconduct rulesand classification of documents. TheCommission firmly
believesthat theOfficial SecretsAct, 1923 in thecurrent formisantiquated and unsuitable
toemerging needs. Thesecond set of issuesrelatestoimplementation of theRTI Act itself,
in particular processengineering, record keeping, disclosures, accessand monitoring. In
respect of thesecond category of issues, theCommissions recommendations arelargely
within theframework of thepresent law.
9.3 It iswell recognized that right toinformation isnecessary, but not sufficient, toimprove
governance. A lot moreneedstobedonetousher in accountability in governance, including
protection of whistleblowers, decentralization of power and fusion of authority with
accountability at all levels. Nevertheless, this law provides us apriceless opportunity to
redesign theprocessesof governance, particularly at thegrassrootslevel wherethecitizens
interfaceismaximum. Now that theromanceof thestrugglefor transparency isover, the
tediousprocessof system-building hastotakeover. It isin thisspirit that theCommission
madespecificrecommendationsand attempted toprovidearoad map for their time-bound
implementation.
CONCLUSION
1. TheOfficial SecretsAct (Para2.2.12) :
a. TheOfficial SecretsAct, 1923should berepealed, and substituted bya
chapter in theNational SecurityAct, containingprovisionsrelatingto
official secrets.
b. Theequivalent of theexistingSection 5, in thenewlawmaybeon thelines
recommended bytheShourieCommitteeasquoted below.
5(1) If anyperson, havingin hispossession or control anyofficial
secret which hascomeinto hispossession or control byvirtueof:-
b1. hisholdingor havingheld an officewith or under government,
or
b2. acontract with thegovernment, or
b3. it beingentrusted to himin confidencebyanother person
holdingor havingheld an officeunder or with thegovernment,
or in anyother manner,
i. communicates, without dueauthoritysuch official secret
to another person or usesit for apurposeother than a
purposefor which heispermitted to useit under any
lawfor thetimebeingin force; or
ii. failsto takereasonablecareof, or so conductshimself
asto endanger thesafetyof theofficial secret; or
iii. wilfullyfailsto return theofficial secret when it ishis
dutyto return it,
5(2) Anyperson voluntarilyreceivinganyofficial secret knowing
or havingreasonableground to believe, at thetimehereceivesit,
that theofficial secret iscommunicated in contravention of thisAct,
heshall beguiltyof an offenceunder thissection.
SUMMARY OF RECOMMENDATIONS:
10
1 57 56
5(3) A person guiltyof an offenceunder thissection shall be
punishablewith imprisonment for atermwhich mayextend to
threeyearsor with fineor with both.
Explanation: For thepurposeof thissection, Official Secret means
anyinformation thedisclosureof which islikelyto prejudicially
affect thesovereigntyand integrityof India, thesecurityof State,
friendly relations with foreign states, economic, commercial,
scientific and technological mattersrelatingtonational securityand
includes: anysecret code, password, sketch plan, model, article,
noteor document in relation to aprohibited place.
2. Governmental Privilegein Evidence(Para2.3.8) :
a. Section 123of theIndian EvidenceAct, 1872should beamended to read
asfollows:
123.(1)Subject totheprovisionsof thissection, nooneshall bepermitted to
giveanyevidencederived fromofficial recordswhich areexempt frompublic
disclosureunder theRTI Act, 2005.
(2) Where he withholds such permission, he shall make an affidavit
containinga statement tothat effect and settingforthhisreasonstherefor.
(3) Wheresuchofficer haswithheld permission for thegivingof suchevidence,
theCourt, after consideringtheaffidavit or further affidavit, and if it
sothinksfit, after examiningsuch officer or, in appropriatecases, the
Minister, orally:
a) shall issuea summonsfor theproduction of theunpublished official
recordsconcerned, if such summonshasnot alreadybeen issued
b) shall inspect therecordsin chambers; and
c) shall determinethequestion whether thegivingof such evidence
would or would not beinjurioustopublicinterest, recordingits
reasonstherefor.
(4) Where, under sub-section (3), theCourt decidesthat thegivingof such
evidencewould not beinjurioustopublicinterest, theprovisionsof sub-
section (1) shall not applytosuch evidence.
Provided that in respect of information classified asTopSecret for reasons
of national security, onlytheHigh Court shall havethepower toorder
production of therecords.
Section 124of theIndian EvidenceAct will becomeredundant on
account of theaboveand will haveto berepealed.
Accordingly, thefollowingwill havetobeinserted at theappropriate
placein theCodeof Civil Procedure, 1908and theCodeof Criminal
Procedure, 1973:
Anyperson aggrieved bythedecision of anyCourt subordinatetotheHigh Court
rejectinga claimfor privilegemadeunder section 123 of theI ndian EvidenceAct,
1872 shall havea right toappeal totheHigh Court against such decision, and such
appeal maybefiled notwithstandingthefact that theproceedingin whichthedecision
waspronounced bytheCourt isstill pending.
3. TheOath of Secrecy(Para 2.4.4):
a. Asan affirmation of theimportanceof transparencyin public affairs,
Ministers on assumption of officemaytakean oath of transparency
alongwith theoath of officeand therequirement of administeringthe
oath of secrecyshould bedispensed with. Articles75(4) and 164(3), and
theThird Scheduleshould besuitablyamended.
b. Safeguard against disclosureof information against thenational interest
maybeprovided through written undertakingbyincorporation of aclause
in thenational securitylawdealingwith official secrets.
4. Exempted organizations(Para2.5.6) :
a. TheArmed Forcesshould beincluded in theSecond Scheduleof theAct.
b. TheSecond Scheduleof theAct maybereviewed periodically.
c. All organizationslisted in theSecond Schedulehaveto appoint PIOs.
Appeals against orders of PIOs should lie with CIC/SICs.
(Thisprovision can bemadebywayof removal of difficultiesunder section
30)
5. TheCentral Civil Services(Conduct) Rules(Para3.1.4) :
a. Civil ServicesRulesof all Statesmaybereworded on thefollowinglines:
Communication of Official I nformation:
Every Government servant shall, in performanceof his duties in good faith,
communicatetoa member of publicor anyorganisation full and accurateinformation,
which can bedisclosed under theRight toI nformation Act, 2005.
59 58
Summaryof Recommendations
Explanation Nothingin thisruleshall beconstrued aspermittingcommunication
of classified information in an unauthorised manner or for improper gainstoa
Government servant or others.
6. TheManual of OfficeProcedure(Para3.2.3) :
a. Para116of theManual of OfficeProcedureneedsto bereworded as
follows:.
Communication of Official I nformation: EveryGovernment Servant shall,
in performanceof hisdutiesin good faith, communicatetoa member of public
or any organization full and accurateinformation, which can bedisclosed
under theRight toI nformation Act. (Nothingstated aboveshall beconstrued
aspermittingcommunication of classified information in an unauthorized
manner or for improper gainstoa Government Servant or others).
b. Para118(1) should bedeleted.
c. TheStateGovernmentsmaybeadvised to carryout similar amendments
in their Manuals, if such provisionsexist therein.
7. Classification of Information (Para4.1.8) :
a. TheGOI should amend theManual of Departmental SecurityInstructions
in thefollowingmanner:
i. Information DeservingClassification (Para3)
It would beadvisablefor each Ministry/Department to identifythe
information which deservesto begiven asecurityclassification.
Ordinarily, only such information should begiven asecurity
classification which would qualifyfor exemption fromdisclosure
under theRight to Information Act, 2005. TheClassification of
documentsshould bedoneasper thefollowingguidelines.
Sl.No. Section of theRTI Act to which Classification
information pertains
1 8(1)(a) Top Secret
2 8(1)(b) Confidential
3 8(1)(c) Confidential
4 8(1)(d) Secret
5 8(1)(e) Confidential
6 8(1)(f) Secret
7 8(1)(g) Top Secret/Secret
8 8(1)(h) Secret/Confidential
9 8(1)(i) Confidential
10 8(1)(j) Confidential/restricted
11 9 Confidential/restricted
Explanation: Theabovementioned classification should begenerally
followed. It isquitepossiblethat information maybecovered bymore
than oneexemption; in that casetheinformation should begiven the
classification of thehigher category. Also if it isfelt bythecompetent
authoritythat circumstancesof acasedemand ahigher classification than
what isindicated above, then thesamemaybedonebyan authority,
which isempowered to givesuch aclassification.
Provision should bemadetoincludeannual confidential reportsof officers
and examination question papersand related mattersin theexemptions
under theRTI Act. Thismaybedonebywayof removal of difficulties
under Section 30.
ii. Upgradingand Downgrading(Para2.3)
Documents onceclassified as Top Secretor Secret, should
remain so classified aslongasrequired but not exceeding30years.
Documentsclassified asconfidential and restricted should remain
so for aperiod not exceeding10years. However, thecompetent
classifyingofficer may, for reasons to berecorded in writing,
61 60
authorisecontinued classification beyond theperiod prescribed
aboveif information, thedisclosureof which would causedamage
to national securityor national interest. A recipient officer of
appropriaterank in aMinistryor Department mayupgradethe
securityclassification of adocument received fromoutside, but
thisraised classification will belimited onlyto theMinistryor
Department. (S)Hewill, however, haveno authorityto downgrade
thesecurityclassification of adocument received, without the
concurrenceof theoriginator. Within thesameDepartment, an
officer superior to theoriginator would havetheauthorityto
downgradeor upgradetheclassification.
iii. Officer Authorised to Accord theGrading:
TopSecret Not below J oint Secretary
Secret Not below DeputySecretary
Confidential Not below Under Secretary
TheStateGovernmentsmayauthoriseofficersof equivalent rank to
accord thegrading.
8. BuildingInstitutions(Para5.2.5):
a. Section 12 of theAct maybeamended to constitutetheSelection
Committeeof CIC with thePrimeMinister, Leader of theOpposition
and theChief Justiceof India. Section 15maybesimilarlyamended to
constitutetheSelection Committeeat theStatelevel with theChief
Minister, Leader of theOpposition and theChief Justiceof theHigh
Court.
b. TheGOI should ensuretheconstitution of SICsin all Stateswithin 3
months.
c. TheCIC should establish 4regional officesof CIC with aCommissioner
headingeach. Similarlyregional officesof SICsshould beestablished in
larger States.
d. At least half of themembersof theInformation Commissionsshould be
drawn fromnon civil servicesbackground. Such aprovision maybe
madein theRulesunder theAct, bytheUnion Government, applicable
to both CIC and SICs.
9. DesignatingInformation Officersand AppellateAuthorities(Para5.3.4) :
(i) All Ministries/ Departments/Agencies/Officeswith morethan onePIO
haveto designateanodal Assistant Public Information Officer with the
authorityto receiverequestsfor information on behalf of all PIOs. Such
a provision should be incorporated in the Rules by appropriate
governments.
(ii) PIOsin Central Secretariatsshould beof thelevel of atleast Deputy
Secretary/Director. In StateSecretariatsofficersof similar rank should
benotified asPIOs. In all subordinateagenciesand departmentsofficers
sufficientlysenior in rank and yet accessibleto public maybedesignated
asPIOs.
(iii) All public authoritiesmaybeadvised bytheGovernment of Indiathat
alongwith thePublic Information Officerstheyshould also designate
theappellateauthorityand publish both, together.
(iv) Thedesignation and notification of AppellateAuthoritiesfor each public
authoritymaybemadeeither under Rulesor byinvokingSection 30of
theAct.
10. OrganisingInformation and Recordkeeping (Para5.4.11):
a. Suo motu disclosuresshould also beavailablein theformof printed,
priced publication in theofficial language, revised periodically(at least
onceayear). Such apublication should beavailablefor reference, freeof
charge. In respect of electronic disclosures, NIC should provideasingle
portal through which disclosures of all public authorities under
appropriategovernmentscould beaccessed, to facilitateeasyavailability
of information.
b. Public RecordsOfficesshould beestablished asan independent authority
in GOI and all Stateswithin 6monthsbyintegratingand restructuring
themultipleagenciescurrentlyinvolved in record keeping. ThisOffice
will bearepositoryof technical and professional expertisein management
of public records. It will beresponsiblefor supervision, monitoring,
control and inspection of record keepingin all public offices.
c. Public RecordsOfficewould function under theoverall supervision and
guidanceof CIC/SIC.
63 62
d. Asaonetimemeasure, GOI should earmark 1% of thefundsof all
Flagship Programmesfor aperiod of fiveyearsfor updatingrecords,
improvinginfrastructure, creatingmanualsand establishingthePublic
RecordsOffices. (An amount not exceeding25% of thisshould beutilized
for awarenessgeneration.)
e. Asaonetimemeasure, GOI maycreateaLand RecordsModernisation
Fund for surveyand updation of all land records. Thequantumof
assistancefor each Statewould bebased on an assessment of thefield
situation.
f. All organizations, which havejurisdiction over an areaequal to or
exceedingadistrict, should befunded and required to completethe
process of digitization by the end of 2009. All sub-district level
organizations should completethis task by theend of 2011. The
controllingMinistries/Departmentsat Union and Statelevel should lay
down adetailed road map for thispurposewith well-defined milestones
within 6months, so that thiscould beimplemented asapriorityitemin
theEleventh FiveYear Plan.
11. CapacityBuildingand AwarenessGeneration (Para5.5.5.):
a. Trainingprogrammesshould not beconfined to merelyPIOsand APIOs.
All government functionariesshould beimparted atleast onedaytraining
on Right to Information within ayear. Thesetrainingprogrammeshave
to beorganized in adecentralized manner in everyblock. A cascading
model could beadopted with abatch of master trainers in each district.
b. In all general or specialized trainingprogrammes, of morethan 3days
duration, a half-day module on Right to Information should be
compulsory.
c. Awareness campaigns should beentrusted to crediblenon profit
organizations at theStatelevel. They should design amulti media
campaign best suited to theneeds, in thelocal language. Thefunds
earmarked (asmentioned in para5.4.11.d) could beutilized for this
purpose.
d. Appropriategovernmentsshould bringout guidesand comprehensible
information material within theprescribed time.
e. TheCIC and theSICsmayissueguidelinesfor thebenefit of public
authoritiesand public officialsin particular and public in general about
key concepts in theAct and approach to betaken in responseto
information requestson thelinesof theAwarenessGuidanceSeries
referred to above(para5.5.1).
12. MonitoringMechanism(Para5.6.4):
a. TheCIC and theSICsmaybeentrusted with thetask of monitoring
effectiveimplementation of Right to Information Act in all public
authorities. (An appropriateprovision could bemadeunder Section 30
bywayof removal of difficulties).
b. Asalargenumber of Public Authoritiesexist at regional, state, district
and sub district level, anodal officer should beidentified wherever
necessarybytheappropriatemonitoringauthority(CIC/SIC) to monitor
implementation of theAct.
c. Each public authorityshould beresponsiblefor complianceof provisions
of theAct in itsown officeaswell asthat of thesubordinatepublic
authorities.
d. A National Coordination Committee(NCC) maybeset up under the
of removingdifficulties. TheNational Coordination Committeewould:
i. serveasanational platformfor effectiveimplementation of the
Act,
ii. document and disseminatebest practicesin Indiaand elsewhere,
iii. monitor thecreation and functioningof thenational portal for Right
to Information,
iv. reviewtheRulesand Executiveordersissued bytheappropriate
governmentsunder theAct,
v. carryout impact evaluation of theimplementation of theAct and
vi. performsuch other relevant functionsasmaybedeemed necessary.
65 64
13. FacilitatingAccess(Para6.2.7):
a. In addition to theexistingmodesof payment, appropriategovernments
should amend theRulesto includepayment through postal orders.
b. Statesmayberequired to frameRulesregardingapplication feewhich
arein harmonywith theCentral Rules. It needsto beensured that the
feeitself doesnot becomeadisincentive.
c. Appropriategovernmentsmayrestructurethefees(includingadditional
fees) in multiplesof Rs5. {e.g. instead of prescribingafeeof Rs. 2per
additional pageit maybedesirableto haveafeeof Rs. 5for every3pages
or part thereof}.
d. State Governments may issue appropriate stamps in suitable
denominationsasamodeof payment of fees. Such stampswould beused
for makingapplicationsbeforepublic authoritiescomingwithin the
purviewof StateGovernments.
e. Asall thepost officesin thecountryhavealreadybeen authorized to
function asAPIOson behalf of Union Ministries/Departments, theymay
also beauthorized to collect thefeesin cash and forward areceipt along
with theapplication.
14. Inventoryof Public Authorities(Para6.3.2):
a. At theGovernment of Indialevel theDepartment of Personnel and
Traininghasbeen identified asthenodal department for implementation
of theRTI Act. Thisnodal department should haveacompletelist of all
Union Ministries/Departmentswhich function aspublic authorities.
b. Each Union Ministry/Department should also havean exhaustivelist of
all public authorities, which comewithin its purview. Thepublic
authoritiescomingunder each ministry/ department should beclassified
into (i) constitutional bodies, (ii) lineagencies, (iii) statutorybodies, (iv)
public sector undertakings, (v) bodiescreated under executiveorders,
(vi) bodiesowned, controlled or substantiallyfinanced, and (vii) NGOs
substantiallyfinanced bygovernment. Within each categoryan up-to-
datelist of all public authoritieshasto bemaintained.
c. Each public authorityshould havethedetailsof all public authorities
subordinateto it at theimmediatelynext level. Thisshould continuetill
thelast level isreached. All thesedetailsshould bemadeavailableon the
websitesof therespectivepublic authorities, in ahierarchical form.
d. A similar systemshould also beadopted bytheStates.
15. SingleWindowAgencyat District Level (Para6.4.2):
a. A SingleWindowAgencyshould beset up in each District. Thiscould be
achieved bycreatingacell in adistrict-level office, and designatingan
officer as theAssistant Public Information Officer for all public
authoritiesserved bytheSingleWindowAgency. Theofficeof theDistrict
Collector/DeputyCommissioner, or theZillaParishad iswell suited for
location of thecell. This should becompleted by all States within
6months.
16. SubordinateField Officesand Public Authorities(Para6.5.4):
a. Thelowest officein anyorganization which hasdecision makingpower
or isacustodian of recordsshould berecognized asapublic authority.
17. Application to Non Governmental Bodies(Para6.6.6):
a. Organisations which performfunctions of apublic naturethat are
ordinarilyperformed bygovernment or itsagencies, and thosewhich
enjoynatural monopolymaybebrought within thepurviewof theAct.
b. Normsshould belaid down that anyinstitution or bodythat hasreceived
50% of itsannual operatingcosts, or asumequal to or greater than Rs.1
croreduringanyof thepreceding3yearsshould be understood to have
obtained substantial funding fromthegovernment for theperiod and
purposeof such funding.
c. Anyinformation which, if it wereheld bythegovernment, would be
subject todisclosureunder thelaw, must remain subject tosuch disclosure
even when it istransferred to anon-government bodyor institution.
d. Thiscould beachieved bywayof removal of difficultiesunder section 30
of theAct.
18. TimeLimit for Information Beyond 20Years(Para6.7.6):
a. Thestipulation of makingavailable20-year old recordson request should
beapplicableonlyto thosepublic recordswhich need to bepreserved
for such aperiod. In respect of all other records, theperiod of availability
67 66
b. If anypublic authorityintendsto reducetheperiod upto which any
thePublic RecordsOfficeassuggested in para5.4.11.
c. Theserecommendationscould beimplemented bywayof removal of
difficultiesunder Section 30of theAct.
19. Mechanismfor Redressal of Public Grievances(Para6.8.3):
a. Statesmaybeadvised to set up independent public grievancesredressal
authoritiesto deal with complaintsof delay, harassment or corruption.
Theseauthoritiesshould work in closecoordination with theSICs/District
SingleWindowAgencies, and help citizensuseinformation asatool to
fight against corruption and misgovernance, or for better services.
20. Frivolousand VexatiousRequests(Para6.9.5):
a. Section 7maybeamended to insert sub section (10) asfollows:
ThePI O mayrefusea request for information if therequest ismanifestly
frivolousor vexatious.
Provided that such a refusal shall becommunicated within 15 daysof receipt
Provided further that all such refusalsshall stand transferred toCI C/SI C, as
thecasemaybeand theCI C/SI C shall disposethecaseasif it isan appeal
b. It maybeprovided that information can bedenied if thework involved
theresourcesof thepublic body.
Provided that such arefusal shall becommunicated within 15daysof
receipt of application, with theprior approval of theappellateauthority.
Provided further that all such refusalsshall stand transferred to CIC/
SIC, asthecasemaybeand theCIC/SIC shall disposethecaseasif it isan
appeal under section 19(3) of theRTI Act.
Thismaybeaccomplished bywayof removal of difficultiesor framingof
appropriateRules.
21. Application of theAct to theLegislatureand theJudiciary(Para7.11):
a. A systemof indexingand cataloguingof recordsof thelegislatures, which
facilitateseasyaccessshould beput in place. Thiscould bebest achieved
bydigitisingall therecordsand providingaccessto citizenswith facilities
for retrievingrecordsbased on intelligiblesearches.
b. A trackingmechanismneedsto bedeveloped so that theaction taken by
theexecutivebranch on variousreportslikeCAG, Commissionsof Enquiry
and HouseCommitteesisavailableto legislatorsand public, online.
c. Theworkingof thelegislativecommitteesshould bethrown open to the
public. Thepresidingofficer of thecommittee, if required in theinterest
of Stateor privacy, mayhold proceedingsin camera.
d. Therecordsat thedistrict court and thesubordinatecourtsshould be
stored in ascientific way, byadoptinguniformnormsfor indexingand
cataloguing.
e. Theadministrativeprocessesin thedistrict and thesubordinatecourts
should becomputerized in atimebound manner. Theseprocessesshould
betotallyin thepublic domain.
69 68
Right toIinformation Master KeytoGoodGovernance
Annexure-I(1)
NATIONAL COLLOQUIUM ON RIGHT TO INFORMATION ACT
National Judicial Academy, Bhopal
11
th
& 12
th
December, 2005.
LIST OF PARTICIPANT DIGNITARIES
Sl.No. NAME DESIGNATION
1. J usticeY.K.Sabharwal Chief J usticeof India
2. J usticeK.G.Balakrishnan J udge, SupremeCourt
3. J usticeR.C.Lahoti Former Chief J usticeof India
4. J usticeS.RajendraBabu Former Chief J usticeof India
5. J usticeN.Santosh Hegde Former J udge, SupremeCourt and
present Chairman, TelecomDisputes
Settlement AppellateTribunal
(TDSAT)
6. J usticeSaleemMarsoof J udgeof theSupremeCourt,
Sri Lanka
7. J usticeA.K.Patnaik Chief J ustice, MadhyaPradesh
High Court
8 Shri Wajahat Habibullah Chief Information Commissioner,
Central Information Commission
9 Shri V.Radhakrishnan Member of Parliament
10 Mr J usticeSunil Ambwani Allahabad High Court
11 Mr J usticeAshok Bhushan Allahabad High Court
12 Mr J usticeArun Mishra Allahabad High Court
13 Mr J usticeC.Y.Somayajulu AndhraPradesh High Court
14 Mr J usticeB.H.Marlapalle Bombay High Court
15 MrsJ usticeV.K.Tahilramani Bombay High Court
16 Mr J usticeJ ayantaKr.Biswas CalcuttaHigh Court
17 Mr J usticeAniruddhaBose CalcuttaHigh Court
18 Mr J usticeDhirendraMishra Chhattisgarh High Court
19 Mr J usticeSatish Kumar Agnihotri Chhattisgarh High Court
20 MrsJ usticeManju Goel Delhi High Court
21 Mr J usticeA.H.Saikia Gauhati High Court
22 Mr J usticeB.J.Shethna Gujarat High Court
23 Mr J usticeA.R.Dave Gujarat High Court
24 Mr J usticeN.N.Tiwari J harkhand High Court
25 Mr J usticeS.A.Nazeer KarnatakaHigh Court
26 Mr J usticeRamMohan Reddy KarnatakaHigh Court
27 Mr J usticeK.K.Denesan KeralaHigh Court
28 Mr J usticeK.Balakrishnan Nair KeralaHigh Court
29 Mr J usticeK.K.Lahoti MadhyaPradesh High Court
30 Mr J usticeRajendraMenon MadhyaPradesh High Court
31 Mr J usticeR.N.Biswal OrissaHigh Court
32 Mr J usticeS.K.Katriar PatnaHigh Court
33 Mr J usticeS.Nayer Hussain PatnaHigh Court
34 Mr J usticeA.P.Subba SikkimHigh Court
35 Mr J usticeP.C.Pant Uttaranchal High Court
36. Smt ShailajaChandra Chairman, PublicGrievances
Commission, Government of Delhi.
37. Shri Parthasarathy Shome Advisor toFinanceMinister
38. Shri P.K.Sharma J oint Secretary, Research &
AnalysisWing.
39 Shri Prashant Bhushan Advocate, SupremeCourt of India
40. Shri K.K.Misra Chief Information Commissioner,
Karnataka
41. Shri Balwinder Singh Additional Secretary, Central
VigilanceCommission.
Annexure-I(1) Contd.
71 70
List of Participant Dignitaries Right toInformation Master KeytoGoodGovernance
42. Dr C.V.Madhukar Parliamentary Research Service,
Centrefor Policy Research
43. Shri T.N.Srivastava Chief Information Commissioner,
Government of MadhyaPradesh.
44. Shri P.K.Mohanty Director General, Centrefor Good
Governance, Hyderabad.
45. Shri K.A.Thippeswamy Information Commissioner,
Karnataka.
46. Shri Vinay Kohli PROOF, Bangalore
47. Prof J oseVerghese Former Vice-Chancellor, HNLU
48. Shri P.S.Bawa Vice-Chairman, Transparency India
49. Shri Venkatesh Nayak CHRI, New Delhi.
50. Dr P.K.Das Chief Information Commissioner,
Gujarat.
51. Dr Ashwin Mahesh E-GovernmentsFoundation
52. Shri Nikhil Dey Member, NCPRI
53. Dr B.Rajendar District Magistrate, Patna, Bihar.
54. Shri Neeraj Mandloi Collector, Ujjain, MadhyaPradesh.
55. Shri Manish Thakur District Collector, Lakhimpur,
Assam.
56. Smt MamtaKundra Principal Director (Staff), Officeof
theComptroller & Auditor General
of India
57. Smt J.R.Zanane Secretary, MP StateInformation
Commission, Bhopal
58. Shri M.K.S.Sundaram District Magistrate, J hansi.
59 Shri K.N.Keshavanarayana Principal District & SessionsJ udge
Mysore
60. Shri K.Govindarajulu Principal District & SessionsJ udge
Mandya
61 Shri Babu Mathew P.J oseph Special Additional SessionsJ udge
(Marad cases), Kozhikode
62 Shri Manik Mohan Sarkar J udge, City Civil Court, Calcutta
63 Shri R.N.Banerjee Registrar (Vigilance& Protocol)
High Court of Calcutta
64 Shri D.AppaRao Chief J udge, City Civil Court,
Hyderabad
65. Shri P.Devadoss SessionsJ udge, SessionsCourt for
ExclusiveTrial of Bomb Blast
cases, Chennai.
66 Shri K.G.Shanker I Addl.Chief J udge, City Civil Court,
Secunderabad.
ADMINISTRATIVE REFORMSCOMMISSION (ARC):
No. NAME DESIGNATION
1. Shri M.VeerappaMoily Chairman, ARC and former Chief
Minister of Karnataka
2. Shri V.Ramachandran Member, ARC
3. Dr A.P.Mukherjee Member, ARC
4. Dr A.H.Kalro Member, ARC
5. Dr J ayaprakash Narayan Member, ARC
6. Smt VineetaRai Member-Secretary, ARC
Annexure-I(1) Contd. Annexure-I(1) Contd.
73 72
List of Participant Dignitaries Right toInformation Master KeytoGoodGovernance
Annexure-I(2)
INTRODUCTION TO THE REPORT ON THE COLLOQUIUM ON RIGHT
TO INFORMATION ACT
Theenactment of theRight toInformation Act, 2005 isindeed oneof outstanding legislative
accomplishment in thedemocraticevolution of theIndian Republic. Yes, thetransition is
not going tobeeither smooth or simple. An entrenched mindset of denial of information
on thepart of thebureaucracy coupled with justifiableapprehension of theconsequencesof
such disclosuremight tend to distort procedures and delay full implementation of the
provisionsof theAct. Thecapacity of thecommon man toaccesstheinformation istoday
verylimited becauseof socio-economicand historical reasons. Therefore, thereisnopossibility
of adiscerniblechangein thequality of governancein theimmediatefuture. Nevertheless,
themandateof thelaw and thecommitment on thepart of asection of theintelligentsiato
makecommon causewith thepeoplewho for long havebeen at thereceiving end of
maladministration and corruption, might increasingly createaclimatefor transparency and
influenceachangein thedesired direction. In that processof change, theNational colloquium
at NJA sponsored by theAdministrativeReformsCommission isasmall, yet important
step.
Theimportanceof theNJA Colloquiumliesin thelargest ever participation of sitting and
retired judgesof thehigher judiciary(nearly 50 judgesof High Courtsand SupremeCourt
including thepresent and threeformer Chief J usticesof India) with theSenior Civil Servants
in-chargeof theimplementation of theAct. Judicial proceeding hasbeen themost transparent
of the entire functioning of the State apparatus. Furthermore, it is through judicial
interpretation of basicrights, that right toinformation assumed thecharacter and statusof
aFundamental Right long beforeParliament legislated on thesubject. Now sincethe
Legislatureand J udiciary areonein thematter of publicdisclosureof mattersrelating to
governmental functioning, theExecutivehasnooption, but tofall in linetoempower the
peoplewith information. Thisissignificant for Ruleof Law and Constitutional Governance.
Outcomeof theColloquium:
It isdifficult tocapturetheoutcomeof deliberationsin a few sentences. That iswhy we
decided to compilea summary of theproceedings highlighting themajor ideas and
perceptions. A few key presentations madeat theColloquiumarealso included in the
Report aspart of theAppendix.
Among thekey outcomesof theColloquium, onewould highlight, inter alia, thefollowing
observations:
(a) Thereis widespread realization at thehigher echelons of administration that the
implementation of the Act pre-supposes the classification, organization and
documentation of information in thevariousdepartmentsunder their supervision.
Thedelay in accomplishing thistask will impedethedischargeof obligationsunder
theAct.
(b) An expansiveinterpretation of obligationsunder section 4 istheimmediateneed
and they havetobecollected and disseminated forthwith which will satisfy alarge
section of peoplewhoareclosely watching theresponseof thebureaucracy.
(c) Theremay besomeitemsof exemptionsand exceptionsunder section 8 still tobe
settled and perhapsgetting advanceruling fromtheCentral Information Commission
may beoneof thestrategiestofacilitateuniformimplementation of theexcluded
categoriesof information. Thiswill avoid inconveniencetothepublicaswell.
(d) Dissemination of therightsand entitlementsunder theAct tothecommon citizensof
thecountry particularly in therural sector isapriority for reaching thebenefitsof
good governancetothemasses. With thePanchayat Raj systemin place, thiscan
makeadifferencein their lifeand accesstobasicneeds.
(e) TheUnited Kingdomwhich adopted asimilar law in 2000 cameout with aseriesof
AwarenessGuidanceNoteson key stepstobefollowed by publicauthoritiesin order
tofacilitateitsimplementation. Thereisneed for such functional tipstobeprepared
and circulated toget thehugeIndian bureaucracy at theCentral, Stateand Local
levelsoperatethenew law in letter and spirit.
(f) Opennessin theexerciseof publicpower isacultureand amind-set which hastobe
cultivated among theofficialsand thecitizen for which thecivil society hastowork
with theGovernment on aplanned programmeof action. Theprivacy exception, the
confidentiality exception, thenational security exception etc. havetobearticulated
in thesocio-political context of our country for theimplementation processtosucceed
according totheintention of theParliament.
(g) Thereis arolefor awhistleblower legislation on thelines suggested by theLaw
Commission.
(h) Finally, thereisneed for aconstant review at different levelstomakeasuccessof this
extra-ordinarily promising law. Thealienation of peoplefromadministration and
75 74
IntroductiontotheReport ontheColloquiumonRight ToInformationAct Right toInformation Master KeytoGoodGovernance
unchecked corruption in thesystemaredanger signalswhich theInformation Law
standshelp tobearrested.
TheAdministrativeReformsCommission established by theGovernment of Indiaunder
theableleadership of an experienced administrator and statesman hasachallenging task in
hand. Most of thedesirablereformin administration will naturally follow if only the
Information Act getsfully implemented. It must thereforebeapriority for ARC toput it on
mission modein partnership with theInformation Commissioners, themediaand thecivil
society.
2
nd
J anuary, 2006 Prof. (Dr.) N.R. MadhavaMenon
Director, National J udicial Academy
Co-ordinator, National Colloquiumon RTIA
Recommendationsof theTechnical Groupsformed at theNational Colloquiumareasunder:
GROUP I
Structureof theAct-Issues.
1. DoestheOfficial SecretsAct needsany amendmentsfor proper implementation of
RTI Act?
Sections8(2) and 22, RTI Act takecareof. Thereisnoneed toamend Official Secrets
Act.
Let theOfficial SecretsAct stand asit isand let usnot meddlewith either Act for the
present.
2. Isit desirabletorepeal/amend theStateInformation Laws? How toharmonisethe
RTI Act and theStateLaws?
Thestatelaw totheextent it isrepugnant totheRTI Act isbad. Thereforeit isfor
thestateGovernment tocontinueor repeal theStateAct.
3. What arrangementsarerequired togiveprotection tothewhistleblowers, asapart of
RTI Act?
WhistleBlowersAct issaid tobeunder consideration. Sofar astheRTI act isconcerned
thequestion of Whistler Blower doesnot rise.
4. Isit desirabletohaveagrievanceredressal mechanism? If so, what should bethe
modalities? Should theInformation Commission beentrusted with thistask?
Theredressal mechanismunder theRTI Act for refusing to giveinformation is
elaborate. It needsnochange. If information isreceived and aredressal isneeded on
thebasisof received information general lawsand rulesapply. (Therecannot betwo
authorities, oneunder RTI Act and other under general laws.)
5. How toaddressvariousfiscal, taxation and monetary policy related issues?
This is exhaustively covered under RTI Act. Audit reports and CAG reports are
already publicdocuments.
6. Isthereaneed torationalizeexemptions?
Thereisnoneed astheexemptionsarequiet rational.
77 76
7. Section 30 providesfor removal of difficulties. What stepsarerequired tobetaken
under thissection for effectiveimplementation of theAct?
Thereisnoneed for considering thisissuefor thetimebeing.
8. Could wehaveawarenessguidancenotes on thelinesof what hasbeen donein U.K.?
Weshall definitelyhaveguidelines. Appropriategovernmentsand commissionsshould
widely makeawarenesstothepublicabout theact.
9 Any other issue?
RTI involves fundamental rights, Officials Secrets Act, Law of defamation Law of
Contempt etc. Hence, personswhoarecompetent toappreciatetheissuesaddressed
should beappointed asInformation Officers. RTI Act issilent on this.
GROUPSII & III
Creation, Maintenanceand Dissemination of Information
Thegoal istoensurethat information isavailabletothecitizensin compliancewith RTI
requirements. Tothisend, therecommendationsdeal with
- information creation
- information maintenance
- information dissemination
1. Creation
Act providesfor putting someinformation in publicdomain mandatorily. Each department
will decidewhat thesuomotolist for itself is.
Theinformation in suomotolistsneedstobecomputerized and standardized tofacilitate
retrieval by government aswell ascitizens. Storageand retrieval of datashould bein a
format that permitsnational-level aggregation and dissemination for schemesimplemented
acrossstateboundaries. Suitablesystemsshould bedeveloped tomonitor, detect, and respond
toinformation needsacrossadministrativeunits.
TheStateand Central ICswill ensurethat completeinformation asrequired under theAct
isprovided by thedepartments. Wherever required, administrativeand businessprocesses
should bereengineered to collect and provideinformation in an accessiblemanner. The
ARC may consider priority areasfor such reengineering.
For example, in PDS, datashould becollected toprovidedisaggregated aswell asaggregate
information on theprocurement, movement and stock of grains, supply-chain management,
cost of transport, thelist of agenciesmanaging thestocks, stock positionsat ration shops,
priceof commodities, scheduleof delivery, timingsof shops, detailsof beneficiariesattached
toeach shop, etc.
Stakeholderswill beconsulted regarding thenature, extent, and meansof dissemination of
theinformation in each area.
Datashould becreated in standardsthat anticipatefutureneedsfor information in addition
tocurrent needs. Standardsshould preferably beopen, but wherethey arenot thereshould
bebridgeprocessestobring non-open-standardsintoopen standardsover time.
Thefull lifecycle(frombirth todeath) of citizens interfacewith government should be
identified, and information systemsspecifictoeach stageshould becreated.
A national databaseof existing information should becreated. As an interimmeasure,
aggregation of district-level dataintogeographical, functional and hierarchical systemsshould
betaken up. An existing national-level organization liketheNIC could beentrusted with
thisresponsibility, or anew organization could beconsidered.
2 Maintenance
All government resolutions, orders, should beconsolidated in specific orders for specific
activities, sothat nopreviousordersneed bereferred to, i.e. each provision of information
should beself-contained.
Systemsand standardsshould bedeveloped for single-window clearanceof citizens requests
for information.
79 78
3 Dissemination
TheInformation Commissionsshould havethelist of all PIOsin their jurisdictions.
Each Information Commission should identify appropriatemodes of dissemination of
information.
Detailed information on theutilization of fundsunder variousschemesof Statesand Centre
should beapart of proactivedisclosurein each department.
Information Commissionsshould in particular ensureregularity and accuracy of information
in thepublicdomain in areasidentified ascorruption-prone.
The potential for private sector/NGO/citizens participation in the dissemination of
information in thepublicdomain should beencouraged.
All application forms, or other formswhich acitizen/businessrequiresfor interfacewith
government, shall beavailableonlinein adownloadableform. If any feeistobecharged, it
should becharged at thetimeof submission of theform.
Government departmentsshould maintain answerstofrequently asked questions(FAQ) on
their websites.
All proactively disclosed information should alsobein thelocal language.
Information that is generally sought fromadepartment, as well as information that is
proactively disclosed, should beavailablein most of theofficesof thedepartment.
Datashould bedisseminated in theformmost appropriatetomeet theinformation need.
For all of theareas, best practicesfromnational and international experiencesshould be
studied and adopted whereappropriate. Programs that haveproven successful in one
jurisdiction should beconsidered for adoption elsewheretoo.
A wide-spread training programmefor PIOsfor effectivecompliancewith RTI legislation
should beundertaken, and Central fundsmay beutilised tosustain theprogram.
GROUP IV
Application of theAct totheLegislature, theJudiciaryand theLocal Self Governments
1Legislature
a. standardisation of information relating to legislativebusiness such as questions,
committeereports, billsetc. Computerisation of legislativebusiness
b. networking of legislativesecretariat with secretariat departments
c. network facilitiesfor legislators, specially PetitionsCommittees.
d. relooking at priviledgesvstransparency and right toinformation
e. CAG recommendationstobeput on auto-pilot for implementation by theexecutive
and monitoring by thePAC, other committeesand legislatures
f. action taken on theCAG reportsby theexecutiveand thelegislaturetobepublished
aspart of section 4 disclosure
g. standardisation of publicauthoritiesand PIOsacrosslegislatures
h. indexing, cataloging and computerisation of recordsin common formats
i. developing legislatureMIScovering legislativebusiness, committees, information
about legislatorsetc.
j. wealth of information through questions, business of proceedings of committees,
reportsof committeesincluding EstimatesCommittee, EthicsCommittee, Standing
Committeeson subjects, PrivilegesCommitteeetc. tobepublished aspart of disclosure
under section 4
k. action taking reportstobepublished fromtimetotimeand madeavailableonline
l. reportsof Enquiry Commissions, HouseCommitteesand Special Committeestobe
put in thepublicdomain online
m. capacity building for legislators, PIOs, APIOs, functionariesof publicauthoritiesetc.
tobegiven priority
n. virtual deliberations of committees rather than calling alargenumber of officers
using videoconferencing facilitiesand e-enabled repository of information
o. backward and forward linkagesfor legislaturestobeclearly mapped out tofacilitate
easy flow of information and e-enablement
p. awareness campaign on legislativebusiness, privileges, committees, law making
proceduresand facilitiesfor Right toInformation with peopleand civil society groups
q. restructuring of businessrulesand legislativesecretarial practicestorespond tothe
requirementsof RTI Act
r. e-legislatureasapart of national e-governanceaction plan
81 80
s. e-enablement of entirelegislaturemanagement systemfor classification, storage
filtering, retrieval and supply of information
2Judiciary
a. standardisation of formatsfor thepurposeof section 4 disclosure
b. networking between thesubordinatecourts, tribunalsand thehigh court
c. web-housing of judgements facilitiestodistrict, high courtsand supremecourt
d. standardisation of publicauthoritiesand piosacrossdifferent levelsof judiciary
e. standardised formatsfor indexing and cataloguing of records, casesacrosssuperior
courts, subordinatecourtsand tribunals
f. computerisation of recordsand caseflow management
g. spateof litigation related toRTI Act work load in high courts resourcesrequired
at all levels
h. e-judiciary asapart of national egovernanceaction plan
3Local self governments
a. standardisation of formats for record keeping with appropriate indexing and
cataloguing for rural local bodiesin threetiers, municipal corporations, municipalities
and nagar pancharyatswith theinvolvement of civicgroupsand local bodies
b. development of local bodiesinformation management systemfollowing thenational
manual
c. audiovisual publicity at thegramsabhaand ward committeelevel and massawareness
campaign
d. grading of local bodieswith respect tomandatory disclorue
e. standardisation of formatsfor disclosureunder section 4
f. directory of PIOs, APIOsand appellateofficerstobewidely disseminated
g. training of councillors, sarpanches, zilaparishad presidentsetcin right toinformation
h. networking of local bodieswith information commission
Annexure-I(2) Contd. Annexure-I(3)
1. Questionnairefor StateGovernmentswhich alreadyhad aStateRTI Act
1. How istheRTI Act of 2005, an improvement over theStateAct? Pleasehighlight
theessential differencesbetween thetwo.
2. When did theStateAct comeintoforce?
3. After thecoming intoforceof theCentral RTI Act what doestheStateplan todo
with theStateAct? {A copy of theStateAct may pleasebefurnished}
4. Wasanyevaluation of theimpact of theStateAct done?What werethemajor findings?
{A copy of thereport may befurnished}
5. What wasthemonitoring mechanismunder theStateAct?
6. Havethedetailsof all applicationsreceived under theStateAct been compiled showing
types of application received, how they weredisposed off, in how many cases the
information could not befurnished, and what werethereasons?
7. What werethemain challengesfaced by theStatein implementing theStateAct?
And how weretheseovercome?
8. What arethearrangementsmadeby theStateGovernment under section 4 of the
RTI Act, toprovidesuo-motu information tocitizens? Havesomeguidelinesbeen
issued? Would issuing guidelineshelp in dissemination of information, asthereisa
tendency tohideunpleasant information? If sowhat all aspectsshould theseguidelines
cover?
9. What arethearrangementsmadein theofficesof theStateGovernment functionaries
at theDistrict level under section 4 of theRTI Act, toprovidesuomotu information
tocitizens?
10. DoestheStateGovernment think that thestateof record-keeping isgood enough to
provideall therequired information asstipulated under theRTI Act? What changes
arerequired?
11. Isit possibletoidentify someoffices/departmentswhereit could besaid that all the
required information, subject toavailability, would beprovided tothecitizens?
12. HastheStateGovernment madeany arrangementsfor creating awarenessabout the
enactment of theAct pertaining toRight toInformation among thecitizens? If yes,
doesit extend toawarenessat thevillage/ GramPanchayat level? What arethemodes
adopted by theStateGovernment for thispurpose?
83 82
Questionnaire Right toInformation Master KeytoGoodGovernance
13. What arethearrangementsmadeby theStateGovernment for spreading awareness
about theRTI Act among peoplewhoareilliterateor in areaswhereilliteracy ishigh?
14. Has theStateGovernment madeany arrangements for storing, disclosureand
dissemination of information using electronic meansi.e. applying themodesof e-
governance? What would bemajor difficultiesin this?
15. What arethearrangementsmadeby theStateGovernment for helping peoplewho
areilliterateand/or wholivebelowthepovertylinetomakean application for disclosure
of information at all levels?
16. DoestheStateGovernment think that aseparateresourceallocation isneeded for
implementing theRTI Act? Would theexisting staff beabletocater totheanticipated
demand at all levels?
17. What monitoring mechanismhastheStateGovernment put in placetokeep track of
all applicationsreceived and how they weredisposed off?
18. HastheStateGovernment initiated any training programmefor thebenefit of its
officerson normsof disclosureof information and implementation of theRTI Act?
19. DoestheStateGovernment think that theOfficial SecretsAct will comein theway
of implementation of the RTI Act? If yes, how? Does the State Government
recommend any amendment in theOfficial SecretsAct?
20. Isit possible/desirabletohaveacitizenscommitteetomonitor theimplementation of
thisAct at theDistrict and theStatelevels?
21. What arrangements have been made by the State Government for accepting
information requestsfromremoteareas?
22. Would it bedesirabletohaveasystemof grading of important officesbased on their
performancein disseminating information?
23. Isit possibletoinvolveprivatesector which can begiven theraw dataperiodically by
someoffices, it then processesthisrawdataand makesthedesired information available
tothepublicon demand? {Theconcept of privately operated information kiosks}.
24. Which aretheareas/sectors/officeswhereeffectiveimplementation of RTI Act could
lead tocurbing corruption? Should theseofficesbemonitored moreclosely for effective
implementation? {ABC Analysis}
25. Would it bepossible/desirabletohaveaSingleWindow agency at theDistrict/Block
levelswhich receivesall information pertaining totheDistrict/Talukaand then processes
themfurther?
26. Many officesespecially theDistrict Collectorsoffice, ZillaPanchayat officeshavetheir
own web-sites. But theinformation availableisquitegeneric. How could theseweb-
sitesbeenriched? Could therebesomeguidelineson making thesewebsitecontent
rich?
27. What arrangementshavebeen madefor acceptanceof feesfor seeking information?
28. TheAct stipulatesthat therenofeesistobepaid by personsliving below poverty
line? What guidelineshavebeen issued for proper implementation of thisprovision?
29. What should bedonetohandlefrivolousdemand for information?
2. Questionnairefor StateGovernmentswhich did not haveStateRTI Act
1. BeforetheRTI Act coming intoforce, what wasthemechanismby which theState
Government, itsagenciesand functionarieswereproviding information tothepublic?
Theremust havebeen asystemof providing copiesof somedocuments? What were
theinstructions/guidelinesissued by theStateGovernmentsin thisregard?
2. Wasthereasystemfor monitoring thissystem? If astudy wasdonefor evaluation of
thissystem, acopy of thesamemay befurnished?
3. What arethearrangementsmadeby theStateGovernment under section 4 of the
cover?
4. What arethearrangementsmadein theofficesof theStateGovernment functionaries
at theDistrict level under section 4 of theRTI Act, toprovidesuomotu information
tocitizens?
5. DoestheStateGovernment think that thestateof record-keeping isgood enough to
provideall therequired information asstipulated under theRTI Act? What changes
arerequired?
7. HastheStateGovernment madeany arrangementsfor creating awarenessabout the
enactment of theAct pertaining toRight toInformation among thecitizens? If yes,
doesit extend toawarenessat thevillage/ GramPanchayat level? What arethemodes
adopted by theStateGovernment for thispurpose?
85 84
8. What arethearrangementsmadeby theStateGovernment for spreading awareness
9. Has theStateGovernment madeany arrangements for storing, disclosureand
10. What arethearrangementsmadeby theStateGovernment for helping peoplewho
areilliterateand/or wholivebelowthepovertylinetomakean application for disclosure
of information at all levels?
11. DoestheStateGovernment think that aseparateresourceallocation isneeded for
12. What monitoring mechanismhastheStateGovernment put in placetokeep track of
all applicationsreceived and how werethey disposed off?
13. HastheStateGovernment initiated any training programmefor thebenefit of its
14. DoestheStateGovernment think that theOfficial SecretsAct will comein theway
of implementation of the RTI Act? If yes, how? Does the State Government
recommend any amendment in theOfficial SecretsAct?
15. Isit possible/desirabletohaveacitizenscommitteetomonitor theimplementation of
thisAct at theDistrict and theStatelevels?
16. What arrangements have been made by the State Government for accepting
17. Would it bedesirabletohaveasystemof grading of important officesbased on their
performancein disseminating information?
18. Isit possibletoinvolveprivatesector which can begiven theraw dataperiodically by
someoffices, it then processesthisrawdataand makesthedesired information available
tothepublicon demand? {Theconcept of privately operated information kiosks}.
20. Would it bepossible/desirabletohaveaSingleWindow agency at theDistrict/Block
levelswhich receivesall information pertaining totheDistrict/Talukaand then processes
themfurther?
21. Many officesespecially theDistrict Collectorsoffice, ZillaPanchayat officeshavetheir
own web-sites. But theinformation availableisquitegeneric. How could theseweb-
sitesbeenriched? Could therebesomeguidelineson making thesewebsitecontent
rich?
22. What arrangementshavebeen madefor acceptanceof feesfor seeking information?
24. What should bedonetohandlefrivolousdemand for information?
3. Questionnairefor Citizens
1. Pleaseindicatethetypeof settlement whereyou reside(a)village(b)town having
population belowonelakh(c)town having population between oneand ten lakh(d)city
having population aboveten lakhs(e)four metros
2. Pleaseindicateyour occupation(a)farming(b)agricultural labourer(c)craftsman(d)private
business(e)industrial labourer(f)Govt. Servant(g)salaried employee in private
sector(h)professional
3. Haveyou ever desired toseek information fromany Ministry/department/agency of
theCentral/StateGovernment beforetheRTI Act coming intoforce?
4. If yes, then did it pertain to(a)statusof any application madeby you (b)reasonsof
rejection of any application madeby you(c) inadequatedelay in processing of any
application(d)faulty processing of any application(e)issuepertaining to any public/
community interest
5. Did you actually writetotheofficialsconcerned for therelevant information?
6. If yes, then did you receiveany information fromtheofficial concerned?
7. If yes, then wereyou satisfied with theinformation provided toyou?
8. Areyou awarethat theIndian Parliament haspassed theRTI Act in 2005, providing
every citizen with theRight toInformation?
87 86
9. Areyou awareof theprovisionsof theRTI Act?
10. Areyou awarethat you arenot required todiscloseany reason for asking thedesired
information under theRTI Act?
11. Areyou awareabout thefeeswhich aretobecharged for thedisclosureof information
under theRTI Act?
12. Areyou awarethat therearenofeesfor any citizen whoisbelow thepoverty line?
13. Are you aware that all Ministries/Departments/agencies of the Central/State
Government arestatutorily required toprovidetherequisiteinformation within 30
daysof making theapplication, which can not exceed 40 daysin any case?
14. Haveyou madeany application under theRTI Act toany Government official?
15. If yes, then haveyou received theinformation within 30 daysof making theapplication?
16. Areyou satisfied with thequality of information disclosed toyou?
17. Doyou think theinformation which hasbeen disclosed toyou quitevague, incomplete
or evasivein nature?
18. Hastheinformation been provided in theformat you had sought?
19. Whether theofficial hasused standardized computer generated format for providing
theinformation which wassought for?
20. Hastheconcerned authoritiesdenied you theinformation which you had sought?
21. If yes, hasthereason for thesamebeen communicated toyou?
22. Areyou satisfied with thereasonssocommunicated?
23. If no, haveyou preferred an appeal against thesaid order?
24. Which provision of theRTI Act wasinvoked by theconcerned authority todeny the
disclosureof information toyou (givethespecificprovision of theRTI Act).
25. What are the arrangements made in the area of your field work by the State
Government for helping peoplewhoareilliterateand/or wholivebelow thepoverty
linein making an application for disclosureof information at all levels?
26. What should bedonetohandlefrivolousdemand of information?
4. Questionnairefor NGOs
1 Nameof theNGO?
2 Pleasespecify theregion/areaof your field work (village/taluka/district/state).
3 Is your organization also carrying out thework of spreading awareness about the
provisionsof theRTI Act in theareaof your field work?
4 Whether your organization had tried toelicit information fromgovernment officials
prior totheenactment of theRTI Act?
5 If yes, whether you had received theinformation you had sought ?
6 If yes, whether theinformation provided toyou wasasper your requirements?
7 Whether any Government authority has madeany attempts to makethepeople
awareof theprovisionsof theRTI Act in your field area?
8 What will bethenatureof information likely tobesought by peopleresiding in your
field work area?
9 Do you think that the concerned government authorities have made suitable
arrangementsfor providing such information tocitizens?
10 Haveyou madeany request for disclosureof information toany Government official
under theRTI Act, in theareaof your field work?
11 If yes, whether theinformation sought for hasbeen received byyou within thestipulated
time?
12 If yes, then haveyou received theinformation within 30 daysof making theapplication?
13 Areyou satisfied with thequality of information disclosed toyou?
14 Doyou think theinformation which hasbeen disclosed toyou quitevague, incomplete
15 Hastheinformation been provided in theformat you had sought?
16 Hastheconcerned authoritiesdenied you theinformation which you had sought?
17 What areyour suggestionsfor effectiveimplementation of theRTI Act?
18 What in your view would bethemajor impedimentsin theeffectiveimplementation
of theRTI Act?
19 What areyour suggestionsfor ensuring that themaximumamount of information
89 88
getsdisseminated through voluntary disclosureunder section 4 of theAct sothat the
work of providing information getsreduced?
20 Do you think that theOfficial Secrets Act would comein theway of effective
implementation of RTI Act? If yes. Why?
21 How togenerateawarenessamong thepeople? Pleasegiveyour suggestions.
22 How to change the mindset of officialdomwhich is basically inclined towards
maintaining secrecy?
23 What would betheeasiest modeof payment of feesfor seeking information? Should
therebestampsof fixed valueliketherevenuestampstobecirculated through all
post offices?
24 What should bedonetoavoid demand for frivolousinformation?
5. Questionnairefor District Collectors
1 Nameof theDistrict?
2 What wasthesystemof providing information on demand tocitizensprior tothe
coming intoforceof theRTI Act? What typeof information could befurnished?
3 What arethearrangementsmadeon part of theDistrict Administration under section
4 of theRTI Act, toprovidesuomotu information tocitizens?
4 What arethearrangementsmadein theofficesat theTaluka/Block level under section
4 of theRTI Act, toprovidesuomotu information tocitizens?
5 Do you think that thestateof record-keeping is good enough to provideall the
required information asstipulated under theRTI Act? What needstobedoneto
improvethestandard of record keeping?
6 Is it possibleto identify someoffices whereit could besaid that all therequired
information, subject toavailability, would beprovided tothecitizens?
7 HastheDistrict Administration madeany arrangementsfor creating awarenessabout
theenactment of theAct pertaining toRight toInformation among thecitizens?
8 If yes, doesit extend toawarenessat thevillage/ GramPanchayat level?
9 HastheDistrict Administration madeany arrangementsfor storing, disclosureand
governance?
10 If yes, then hastheDistrict Administration prepared any standard format for storing,
disclosureand dissemination of information at variouslevels?
11 What arethearrangements madeby theDistrict Administration for spreading
awarenessabout theRTI Act among peoplewhoareilliterateor in areaswhereilliteracy
ishigh?
12 What arethearrangementsmadeby theDistrict Administration for helping people
whoareilliterateand/or wholivebelow thepoverty linetomakean application for
disclosureof information at all levels?
13 HastheDistrict Administration initiated any training programmefor thebenefit of
itsofficerson normsof disclosureof information and implementation of theRTI Act?
14 IstheDistrict Administration asking for verification of citizenship statusin general
and economicstatusfor peoplelying belowthepoverty line in particular frompersons
making applicationsunder theRTI Act?
15 DoestheDistrict Administration think that theOfficial SecretsAct will comein the
way of implementation of theRTI Act?
16 If yes, how?
17 Doyou think that acitizens committeemay beuseful in implementation of thisAct?
18 Isit possible/desirabletohaveasinglewindow agency toreceiveand then processall
applications? If yeswhat stepsareneeded tobetaken for this?
19 What should bedonetohandlefrivolousdemand of information?
6. Questionnairefor Union Ministriesand Departments
1. What arethearrangementsmadeby theMinistry/Department under section 4 of the
cover?
2. What arethearrangementsmadein theofficesof theMinistry/Department at the
District level under section 4 of theRTI Act, toprovidesuomotu information to
citizens?
91 90
3. DoestheMinistry/Department feel that thestateof record-keeping isgood enough
toprovideall therequired information asstipulated under theRTI Act? What changes
arerequired?
5. HastheMinistry/Department madeany arrangementsfor creating awarenessabout
theenactment of theAct pertaining toRight toInformation among thecitizens? If
yes, doesit extend toawarenessat thevillage/ GramPanchayat level? What arethe
modesadopted by theStateGovernment for thispurpose?
6. What arethearrangementsmadebytheMinistry/Department for spreading awareness
7. Has theMinistry/Department madeany arrangements for storing, disclosureand
8. What arethearrangementsmadeby theMinistry/Department for helping people
whoareilliterateand/or wholivebelow thepoverty linetomakean application for
disclosureof information at all levels?
9. DoestheMinistry/Department think that aseparateresourceallocation isneeded for
10. What monitoring mechanismhastheMinistry/Department put in placetokeep track
of all applicationsreceived and how they weredisposed off?
11. HastheMinistry/Department initiated any training programmefor thebenefit of its
12. DoestheMinistry/Department think that theOfficial SecretsAct will comein the
way of implementation of theRTI Act? If yes, how? Should theOfficial SecretsAct
beamended?
13. What arrangements havebeen madeby theMinistry/Department for accepting
14. Would it bedesirabletohaveasystemof grading of Ministry/Department based on
their performancein disseminating information?
15. Isit possibletoinvolveprivatesector which can begiven theraw dataperiodically
Ministry/Department, it then processesthisrawdataand makesthedesired information
availabletothepublicon demand? {Theconcept of privately operated information
kiosks}.
17. How many PIOshavebeen appointed in theMinistry/Department? Isit desirable/
possibletohaveonePIO in each Ministry/Department at least in Delhi?
18. Havearrangementsbeen madetoseek information electronically? In such cases
how thefeeswould bepaid?
20. What should bedonetohandlefrivolousdemand of information?
21. What arrangementshavebeen madetogiveinformation in thelanguagerequested
by theapplicant?
7. Questionairefor themedia
1. Whether your organization had tried toelicit information fromgovernment officials
prior totheenactment of theRTI Act?
2. If yes, whether you had received theinformation you had sought?
3. If yes, whether theinformation provided toyou wasasper your requirements?
4. What will bethenatureof information likely tobesought by people?
5. Do you think that the concerned government authorities have made suitable
arrangementsfor providing such information tocitizens?
6. Haveyou madeany request for disclosureof information toany Government official
under theRTI Act, in theareaof your field work?
7. If yes, whether theinformation sought for hasbeen received byyou within thestipulated
time?
8. If yes, then haveyou received theinformation within 30 daysof making theapplication?
9. Areyou satisfied with thequality of information disclosed toyou?
93 92
10. Doyou think theinformation which hasbeen disclosed toyou isvague, incomplete
11. Havetheconcerned authoritiesdenied you theinformation which you had sought?
12. What areyour suggestionsfor effectiveimplementation of theRTI Act?
13. What in your view would bethemajor impedimentsin theeffectiveimplementation
of theRTI Act?
14. What areyour suggestionsfor ensuring that themaximumamount of information
getsdisseminated through voluntary disclosureunder section 4 of theAct sothat the
work of demanding information getsreduced?
15. Do you think that theOfficial Secrets Act would comein theway of effective
implementation of RTI Act? If yes. Why?
16. What amendmentsneed tobecarried out in theOfficial SecretsAct toensureFreedom
of Information?
17. How togenerateawarenessamong thepeopleabout freedomof information? Please
giveyour suggestions.
18. How to changethemindset of officialdomwhich is basically inclined towards
maintaining secrecy?
19. What should bedonetoavoid demand for frivolousinformation?
95 94
ResponsetoQuestionnaire Right toInformation Master KeytoGoodGovernance
Annexure-(3)
Responseto Questionnaire
(Ason11.05.2006)
Highlights of theresponses fromUnion Ministries and Departments arebeing
given asunder:
Sl. No. Question Reply
Yes No No Comments/
(affirmative) (negative) Non Categorical
response
1. Whether arrangementsmadefor 27(100%)
suomotudisclosure?
2. Whether publicauthoritieshave 26(96.3%) 1(3.7%)
beenidentified?
3. Whether protocolsandformats 8(29.6%) 12(44.44%) 7(26%)
havebeendevelopedfor uniform
applicationinall public
authoritiesfor proactive
disclosure?
4. Whether stateof record-keeping 16(59.25%) 7(26%) 4(14.8%)
isconsideredgoodenough?
5. Whether arrangementshavebeen 13(48.14%) 9(33.33%) 5(18.5%)
madefor creatingawarenessabout
theAct amongthecitizens?
6. Whether electronicmeansof storing 14(51.85%) 4(14.8%) 9(33.33%)
anddisseminatingof informationhave
beendeveloped?
7. Whether separateresourceallocation 17(63%) 7(26%) 3(11%)
isneeded?
8. Whether anyamendment inthe 2(7.6%) 14(51.85%) 11(40.74%)
Official SecretsAct isrequired?
9. Whether monitoringmechanism 27(100%)
adoptedfor keepingtrack
of applications?
10. Whether co-ordinationbetweenCIC 16(59.25%) 4(14.8%) 7(26%)
andSICsisrequiredfor sharing
of best practices, easysingle
windowaccessetc.
Annexure-I(4)
CASE STUDIES
Information was sought fromthefollowing fiveMinistries/Departments under theRTI
Act:
CaseStudy1: Department of Industrial Policyand Promotion
Dateof filing theapplication: 20.1.2006
Difficulty faced in filing theapplication: Theapplication feeas per theAct is
Rs10/-. However sinceDIPP insisted only on Demand Draft, theDraft wasprepared
at acost of Rs35.
Information sought: What isthebasisof classifying durableand non-durableconsumer
goodsin theindustrial classification? What isthebasisof datacollection and the
responsepercentage?
Dateon which responsereceived: 2.2.2006
Natureof response: Information not availablewith theDepartment, asthisdoesnot
fall under thepurview of thisDepartment. (Thereseemstobeatendency tohide
information or togiveminimuminformation, which reflectsthat attitudinal change
hasnot taken place. It may bementioned herethat, DIPP isthesourceagency for
collection of datain respect of Index of Industrial Production with aweight of 51%
and bringsout an internal report on 209 itemscompiled by it with sub classifications,
including that of consumer durableand non-durables).
CaseStudy2: Department of Revenue(CBDT)
Difficulty faced in filing theapplication: None
Information sought: Whether IncomeTax benefits under Equity Linked Saving
Schemes(ELSS) arestill availableunder thenew provisionsof IncomeTax Act?
Natureof response: TheDepartment hasinformed that theinformation asked for is
not covered under theRTI Act. However, copy of aCircular issued in regard of the
tax benefit wasenclosed.
CaseStudy3: Ministryof Panchayati Raj
Information sought: What measures arebeing taken to strengthen and develop
Panchayati Raj institutionsin theStateof J harkhand?
Natureof response: PRIsfall under thestatesubject and thereforetheapplication
forwarded toJ harkhand Statefor thedesired information with acopy marked tothe
applicant. (Responsefromthestategovernment wassubsequently received and was
satisfactory).
CaseStudy4: Central Statistical Organization
Information sought: What isthesamplesizefor collection of dataon varioussectors
and theresponserate? What isthebasisof thissamplesizeand isit asper international
statistical standards?
Dateon which responsereceived: Responseawaited.
Natureof response: (Responsehasnot been received till 15.05.2006).
97 96
A CaseStudies Right toInformation Master KeytoGoodGovernance
CaseStudy5: Ministryof Water Resources
Difficulty faced in filing theapplication: Pay & AccountsOfficeof theMinistry is
located in adifferent building.
Information sought: Whether thereareany ongoing projectstorevivetheSoneCanal
Systemin Bihar, including itsdesiltation? Whether theSpecial River Commission for
study of SoneRiver hasbeen set up asenvisaged whilesetting up theBansagar Control
Board, and whether itsstudieshavebeen completed? What hasbeen thedischarge
allowed toBihar in theSoneRiver during May toOctober and December toMarch in
F.Yrs.02-03/03-04?
Dateon which responsereceived: On 31.1.06, it wasinformed that application has
been forwarded toWater ResourcesDepartment, Govt. of Bihar and Central Water
Commission. Reply received fromGovt. of Bihar videletter dated 27.2.06, and from
CWC videletter dated 16.3.06.
Natureof response: Appropriatedetailshavebeen provided.
99 98
A ComparativeAnalysisof theRight toInformationAct of Different States Right toInformation Master KeytoGoodGovernance
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P
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103 102
A ComparativeAnalysisof theRight toInformationAct of Different States
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S
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c
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ly
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t
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n
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h
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q
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s
t

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la
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e
s

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f
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r
m
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t
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h
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t

is
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q
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d

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y

l
a
w

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o
n
v
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n
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p
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h
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d
a
t
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ic
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la
r
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im
e
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r
(
iii)
t
h
e

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q
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e
s
t

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la
t
e
s

t
o

in
f
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r
m
a
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n

t
h
a
t

is
c
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n
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a
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d

in

p
u
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lis
h
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d

m
a
t
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r
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l
f
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r

s
a
le
.
[
S
e
c
.4
(
2
)
(
l)
]
T
h
e

d
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ig
n
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f
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S
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c
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l.
(
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in
v
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m
e
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ie
s
. (
S
e
c
.6
)
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s
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s
p
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d
in
s
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c
t
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n
6
(
2
)
o
f
t
h
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A
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t
.
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ll lo
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A
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t

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t
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la
t
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t
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im
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b
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in

f
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l
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C
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p
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s
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a
n
d
C
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e
S
o
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ie
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ie
s
in
w
h
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h
n
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le
s
s
t
h
a
n
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y
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ld
b
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e
S
t
a
t
e
G
o
v
e
r
n
m
e
n
t
. [
S
e
c
.2
(
b
)
]
c
o
n
s
t
it
u
t
e
d
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n
d
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r
a
n
y
la
w
f
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h
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im
e
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g
in
f
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r
(
ii)
a
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t
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r

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t
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la
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in

f
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e
;
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r
(
iii)
a
G
o
v
e
r
n
m
e
n
t
C
o
m
p
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n
y
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C
o
r
p
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t
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c
o
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r
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e
d
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d
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r
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C
o
m
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s
A
c
t
, 1
9
5
6
(
C
e
n
t
r
a
l A
c
t
N
o
.1
o
f
1
9
5
6
)
in
w
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h
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o
t
le
s
s
t
h
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n
f
if
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f
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;
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(
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C
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ly
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it
;
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(
v
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y

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t
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r

b
o
d
y
,

w
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h

m
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y

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e

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s
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b
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G
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n
t
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a
s

m
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b
e
s
p
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if
ie
d
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y
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t
if
ic
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t
h
e
G
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t
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e
s
o
f
t
h
is
A
c
t
[
S
e
c
.2
(
f
)
]
109 108
C
o
n
t
d
.
.
A
S
S
A
M

2
0
0
2
M
A
D
H
Y
A

P
R
A
D
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H

2
0
0
3
J
A
M
M
U

&

K
A
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M
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R

2
0
0
4
C
A
N
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F
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T
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A
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M
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d

t
o

a

l
i
m
i
t
e
d

e
x
t
e
n
t
.

[
S
e
c
.
3
(
c
)
]
Y
e
s
,
u
n
d
e
r
s
u
b
-
s
e
c
t
i
o
n
s
(
b
)
,
(
c
)
,
(
d
)
&
(
e
)
o
f
s
e
c
t
i
o
n
3
o
f
t
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e

A
c
t
.
N
O
N
O
N
O
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R
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h
e

I
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h
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f

O
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a
s

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q
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s

a
n
d

g
i
v
e

i
n
f
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m
a
t
i
o
n
.
[
S
e
c
.
5
(
1
)
]
A

p
e
r
s
o
n

d
e
s
ir
in
g

t
o

in
s
p
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c
t

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b
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a

c
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c
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u
n
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A
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m
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a
p
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t
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w
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t
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d
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s
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a
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d
o
f
f
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r
.
[
S
e
c
.
5
(
1
)
]
A
n
y

p
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r
s
o
n

s
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k
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g

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n
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h
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a
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m
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t
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n

i
s

s
o
u
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t
.
(
S
e
c
.
5
)
A
P
P
E
A
L
S
A
g
g
r
i
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v
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d

p
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c
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n

f
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t

a
p
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C
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O
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f
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r

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f

t
h
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I
n
c
h
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e

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f

O
f
f
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T
h
e

S
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c
o
n
d

A
p
p
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a
l
l
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t
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A
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A
d
m
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n
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t
r
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i
v
e
T
r
ib
u
n
a
l
.
(
S
e
c
.
6
)
T
h
e
r
e

i
s

a

b
a
r

o
f

j
u
r
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s
d
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c
t
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n

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f
C
o
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r
t
s
(
S
e
c
.
1
0
)
A
n
y

p
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n

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v
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it
h
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d
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m
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S
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a
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o
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d

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y

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G
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v
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t

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c
h

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u
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s

a
s

m
a
y

b
e

p
r
e
s
c
r
ib
e
d
.
(
S
e
c
.
7
)
A
n
y

p
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r
s
o
n

a
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g
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d

b
y

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e

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r
i
t
y
.
[
S
e
c
.
2
(
j)
]
P
u
b
l
i
c

A
u
t
h
o
r
i
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m
e
a
n
s

a
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:
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it
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n
b
)
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a
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y
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in
a
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d
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G
o
v
e
r
n
m
e
n
t
. [
S
e
c
.2
(
h
)
]
2
P
A
R
A
M
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T
E
R
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A
M
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&
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A
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S
.
N
o
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13
U
N
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T
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D
K
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c
o
m
m
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ic
a
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d

t
o

h
im
.
[
S
e
c
.1
(1
)]
I
n
t
h
is
A
c
t

p
u
b
lic
a
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a
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c
t
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n

4
(
4
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,

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i)
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lis
t
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in
S
c
h
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d
u
le
1
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r
(
ii)
is
d
e
s
ig
n
a
t
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d
b
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r
s
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c
t
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5
, o
r
(
b
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a
p
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ly
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c
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m
p
a
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a
s
d
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f
in
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d
b
y
s
e
c
t
io
n
6
. [
S
e
c
.3
(
1
)
]
S
O
U
T
H

A
F
R
I
C
A
P
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N

O
F

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C
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C
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,

2
0
0
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A

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f

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p
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l
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y

[
S
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c
.
1
1
(
1
)
]
A

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p
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y

[
S
e
c
.
5
0
(
1
)
]
T
h
is
A
c
t
a
p
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lie
s
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(
a
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r
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y
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n
d
(
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p
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t
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n
c
e
. (S
e
c
.3
)
p
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lic
b
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d
y
m
e
a
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s
(
a
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f g
o
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; o
r
(b
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n
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(i)
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p
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C
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p
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n
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t
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in

t
e
r
m
s

o
f
a
n
y

le
g
is
la
t
io
n
;
(S
e
c
.1
)
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iv
a
t
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b
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m
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a
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(a
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n
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u
t
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n
ly
in
s
u
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c
a
p
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c
it
y
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(b
)
a
p
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ip
w
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u
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s
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fe
s
s
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n
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r
(c
)
a
n
y

fo
r
m
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r

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e
x
is
t
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ju
r
is
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ic

p
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s
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n
,
b
u
t
e
x
c
lu
d
e
s
a
p
u
b
lic
b
o
d
y
; (S
e
c
.1
)
C
A
N
A
D
A
A
C
C
E
S
S

T
O
I
N
F
O
R
M
A
T
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O
N
A
C
T
,

1
9
8
5
E
v
e
r
y
p
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s
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n
w
h
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a
C
a
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a
d
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c
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a

p
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(
d
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f
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d
)

h
a
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a

r
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h
t
t
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a
n
d

s
h
a
l
l
,

o
n

r
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q
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s
t
,

b
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g
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v
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a
c
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s
s

t
o

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n
y

r
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c
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v
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m
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t

i
n
s
t
i
t
u
t
i
o
n
.
[
S
e
c
.
4
(
1
)
]
g
o
v
e
r
n
m
e
n
t

i
n
s
t
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t
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t
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G
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C
a
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l
is
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in
S
c
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d
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le

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o
r

a
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y

b
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o
f
f
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i
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t
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i
n

S
c
h
e
d
u
l
e

I
.

(
S
e
c
.
3
)
I
N
D
I
A
R
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T

T
O

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A
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C
T
,

2
0
0
5
A
n
n
e
x
u
r
e
-
I
(
6
)
-
I
N
D
I
A
4
A
P
P
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A
B
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p
p
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o

L
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b
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J
u
d
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A
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S
c
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d
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1

n
o
r

c
a
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b
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d
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S
c
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d
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c
t
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n
4
(
1
)
,
b
u
t
w
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o
-
(
a
)

a
p
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S
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c
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b
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a
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o
r
(
b
)

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v
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d
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a

c
o
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m
a
d
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w
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a
p
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b
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it
y
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f
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n
c
t
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n

o
f

t
h
a
t
a
u
t
h
o
r
i
t
y
.

[
S
e
c
.
5
(
1
)
]
A
s

p
e
r

t
h
e

p
r
o
v
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s
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o
n
s

o
f

S
e
c
.
5
0

(
1
)
,

a
r
e
q
u
e
s
t
e
r

m
u
s
t

b
e

g
i
v
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n

a
c
c
e
s
s

t
o

a
n
y
r
e
c
o
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d

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f

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p
r
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v
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e

b
o
d
y
.

A
s

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e
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a
b
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,

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a
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1
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6

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[
S
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c
.
3
3
(
1
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(
a
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]
S
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A
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t
,

[
S
e
c
.
8
(
1
)
]
,

t
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m
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b
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s
t
[
S
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c
.
8
(
2
)
]
.

O
n
l
y

i
n

t
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c
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[
S
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c
.
9
]
.
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c
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u
b
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a
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f
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p
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o
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(
6
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N
D
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A
Y
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s
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a
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i
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S
e
c
.
8
(
2
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.
S
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N
o
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9
C
O
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D
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I
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N
A
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o
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l
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f
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m
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w
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e
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O
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o
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8

c
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t
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m
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f
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m
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t
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n
.
[
S
e
c
.
3
3

(
1
)

(
b
)
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I
n

t
h
e
s
e

c
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t
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f
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m
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a
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1
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6

(
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N
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7
4

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1
9
9
6
)
;
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(
iii)
a
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t
c
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p
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c
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(
S
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c
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1
2
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A
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A
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p
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c
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f
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c
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b
y
C
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m
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k
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a

o
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C
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o
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r
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c
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f
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f
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m
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m
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f
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Annexure-V(1)
List of Stateswhich haveconstituted theInformation Commissions
(ason 12-4-06)
S.No State Nameof StateChief Background
Information Commissioner
1 AndhraPradesh Shri C.D. Arha Civil Service
2 Assam Shri R.S. Mushahary Civil Service
3 Chattisgarh Shri A.K. Vijayavargiya Civil Service
4 Goa Shri A. Venkatratnam Civil Service
5 Gujarat Shri P.K.Das Civil Service
6 Haryana Shri G.Madhavan Civil Service
7 Himachal Pradesh Shri P.S.Rana Civil Service
8 Karnataka Shri K.K.Mishra Civil Service
9 Kerala Shri Palat Mohandas Civil Service
10 MadhyaPradesh Shri T.N.Shrivastava Civil Service
11 Maharashtra Shri Suresh V. J oshi Civil Service
12 Meghalaya Shri G.P.Wahlang Civil Service
13 Nagaland Shri P.Talitemjen Civil Service
14 Orissa Shri D.N.Padhi Civil Service
15 Punjab Shri Rajan Kashyap Civil Service
16 Rajasthan Shri M.D. Kaurani Civil Service
17 Tamil Nadu Shri S.Ramakrishnan Civil Service
18 Tripura Shri B.K.Chakraborty Civil Service
19 Uttaranchal Shri R.S.Tolia Civil Service
20 Uttar Pradesh J usticeShri Mohd. Asgar Khan J udiciary
21 West Bengal Shri Arun Bhattacharya Civil Service
119 118
Right toInformation Master KeytoGoodGovernance Right toInformation Master KeytoGoodGovernance
Annexure-V (2)
No. of CPIOs/PIOsin variousMinistries/Departments
(Basedoninformationavailableontheir websitesason11.05.2006)
Sl No Ministry/Department No. of Level of Whether
CPIOs Officers Appellate
officer appointed?
1 PMO 1 Dir. Yes
2 Department of Commerce 41 Dir./DS/US Yes
3 Department of Industrial Policy&Promotion 15 Dir./DS Yes
4 Ministryof Personnel, PublicGrievancesandPensions 42 Dir./DS Yes
5 Department of Revenue 11 Dir./DS NA
6 Department of Expenditure 9 Dir./DS Yes
7 Ministryof AgroandRural industries 1 Dir. Yes
8 Ministryof Civil Aviation 1 US Yes
9 Ministryof Coal 1 DS Yes
10 Ministryof ParliamentaryAffairs 3 DS Yes
11 Ministryof Environment andForest 22 J S/Dir/DS Yes
12 Ministryof External Affairs 1 J S Yes
13 Ministryof FoodProcessingIndustries 15 Dir./DS Yes
14 Ministryof Labor andEmployment 1 Dir. Yes
15 Ministryof HealthandFamilyWelfare 36 Dir./DS/AC NA
16 Department of Legal Affairs 6 J S/Addl. Legal Adv. NA
17 Ministryof Mines 1 Dir. Yes
18 Department of OceanDevlopment 6 Dir./DS Yes
19 Department of Science&Technology 1 DS Yes
20 Department of Tourism 15 Dir./DS Yes
21 Ministryof Water Resources 10 Dir./DS NA
22 IndiaMeteorological Department NA NA NA
J S=J oint Secratary; Dir.=Director; DS=DeputySecretary; US=Under Secretary; AC=Assistant Commissioner; NA=Not Available
Annexure-V (3)
Responsesof someMinistries/Departmentsabout statusof record-keeping
No. Agency Response
1 Deptt. of Consumer Affairs Recordkeepingwouldbedevelopedwithpassage
of time.
2. Ministryof Tourism Sincetheobligationunder section4(1)(a) must get
dischargedwithinatimeframeoutsourcingof efforts
tobringinplaceasystemof e-managedrecordsshould be
anoptionworthconsidering.
3. Deptt. of Post That retrieval andstorageof informationwill becomeeasier
byuseof systemsbasedoninformationandcomputer
technology. Detailedandstandardproceduresfor this
shouldbedevelopedbythenodal Ministry
4. Ministryof Petroleum& Thepresent systemof recordmanagement isappropriatefor
Natural Gas recordkeepingof theMinistry.
5. Ministryof Steel Recordkeepingat present isgoodenough
6. Deptt. of Expenditure Recordmaintenanceneedstobegivenconstanattentionfor
itsownsakeRTI or noRTI. Thereis needfor consultation
withDepartment of Personnel andTrainingonthe
advisabilityandextent towhichthenormsgoverning
weedingout of recordsneedstobechangedinthelight of
theRTI Act.
7. Ministryof Power TheStateof recordkeepingisgoodenough
8. Ministryof OverseasIndianAffairs Computerizationof all therecordsandnetworkingof all the
officesistheonlysolutionfor providingall information
stipulatedunder theRTI Act. Theyhavealsostatedthat
theyhavestartedthisprocessof computerizationwhich
wouldbecompletedwithinoneyear.
9. Deptt. of Telecommunications Infewcasesgivinginformationmaytakemorethan
theprescribedtime. Henceeffortsareneededtomodernize
thesystemof recordkeeping.
10. Deptt. of IT Thestatusof recordkeepingissatisfactoryat thisstage.
11. Ministryof LawandJ ustice Stateof record-keepingisgood
12 Ministryof NonConventional Thepresent of record-keepingmaynot beenough.
EnergySources It isnecessarytodevelopappropriateinformationsystem
throughcomputers.
13. Department of Agricultural TheManual of OfficeProceduresistimetestedanddoesnot
ResearchandEducation warrant changes.
14. Ministryof UrbanDevelopment. Thereisaneedtoconvert all recordswhicharemore
thanfiveyearsoldintoelectronicform
15. Deptt. of HealthandFamilyWelfare Thestateof record-keepingissatisfactorybut it isbeing
further improved.
16. Deptt. of AgricultureandCooperation Therecord-keepinghastobeupdatedfor easy
computerization, micro-filming, conversionintoelectronic
formfor webrelatedapplication, tofacilitateeasyretrieval
andaccess.
120
Annexure-VI(1)
TheInverted Treeconcept for maintaininginventoryof thepublic authorities

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FIRST REPORT

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