Access to Information: Making it Work for Canadians

Report of the Access to Information Review Task Force

Table of Contents

Introduction
Our View
Our Main Points
Data at a Glance
Our Work
The Access to Information Regime – A Primer

Chapter 1 – Starting With The Basics: Access Principles and the Right Of Access
Access Principles and the Purpose Clause
Right of Access
Conclusion

Chapter 2 – Revisiting Coverage: Government Institutions
The Executive
The Legislature
   – Parliament
   – Officers of Parliament
The Courts and the Judiciary
Conclusion

Chapter 3 – Looking At Scope: Records Covered By The Act
Definition of a Record
Under the Control of a Government Institution
Contractors’ Records Related to the Delivery of Government Programs and Services
Records in Ministers’ Offices
Public Servants’ Notes
Deliberations of Administrative Tribunals
Records Within the Military Justice System
Seized Records and Records Obtained in the Context of Litigation
Conclusion

Chapter 4 – Striking the Right Balance: Exemptions and Exclusions
Exemption/Exclusion Structure
   – Mandatory vs Discretionary Exemptions
   – Injury Tests
   – General Public Interest Override
   – Positive Duty to Disclose
   – Interpretation and Application of Exemptions – the Exercise of Discretion Specific Exemptions/Exclusions
   – Deliberative Processes of Government
      – Section 69 – Cabinet Confidences
      – Section 21 – Operations of Government
   – National Security, Defence and Law Enforcement
      – Section 13 – Information Obtained in Confidence from Other Governments
      – Section 15 – International Affairs and Defence
      – Section 16 – Law Enforcement and Investigations
      – Section 20 – Information provided by Third Parties about Critical          Infrastructure Vulnerabilities
Other Exemptions/Exclusions
   – Section 14 – Federal-Provincial Affairs
   – Section 17 – Safety of Individuals
   – Section 18 – Economic Interests of Canada
   – Section 19 – Personal Information
   – Section 20 – Third Party Information
   – Section 22 – Testing Procedures, Tests and Audits
   – Section 23 – Solicitor-Client Privilege
   – Section 24 – Statutory Prohibitions
   – Section 26 – Refusal of Access Where Information is About to be       Published
   – Section 68 – Exclusion of Published Materials
   – Protecting Cultural and Natural Heritage Sites
Conclusion

Chapter 5 – The Access Process In The Act
Requests
   – Format of release
   – Clarifying and Determining the Scope of Requests
   – Defining a Request
   – Frivolous, Vexatious or Abusive Requests
Time Limits
   – Thirty-Day Time Limit
   – Extensions
   – Release of Processed Records
   – When Time Limits Are Not Met
Fees
   – Application Fee
   – A Differential Fee Structure – Commercial and General Requests.
   – Encouraging Focused Requests
   – A Fee Structure for Commercial Requests
   – Fee Rates
   – Extremely Large Requests
   – Fee Waiver Criteria
   – Expedited Delivery
   – A Summary of the Proposed Fee Structure
   – Review of Fees
   – Reinvesting Fees
Multiple Requests
Duty to Assist the Requester
Conclusion

Chapter 6 – Ensuring Compliance: The Redress Process
Right to Complain
   – Administrative Review
   – Right to Complain about Fees
   – Time to Complain
   – Fees to Complain
Mandate of the Information Commissioner
   – Education Mandate
   – Advisory Mandate
   – Practice Assessment Mandate
   – Mediation Mandate
Investigating Complaints
   – The Investigation Process
   – A Shared Understanding
   – Clarity as to Issues Under Investigation
   – Documenting the Handling of the Request
   – Investigations into Process Matters
   – Reviews Conducted in Writing
   – Timely Investigations
  – Role of Complainant
Formal Investigations – Ensuring Procedural Fairness
   – Confidentiality of the Investigations
   – Right to Counsel
   – Subpoenas
   – Notice to Affected Individuals
   – Solicitor-Client Privilege
   – Contempt Powers
   – Compellability of the Information Commissioner
Review by the Federal Court – Litigating Access to Information
Structural Models for the Review Process
   – Ombudsman Model
   – A Hybrid Model: Order-Making Powers in Relation to Process Issues
   – Full Order-Making Powers
Conclusion

Chapter 7 – The Way To A Better Access Process
Facilitating Access for Canadians
   – Helping Canadians to Access Information
   – Facilitating the Openness of the Access Process
   – Facilitating Electronic Request Processing
Resourcing the Access Program
   – Central Resourcing
   – Resourcing of Individual Institutions
Effective Processing of Requests
   – Access Officials
   – Making Decisions in Response to Requests
Supporting Access Officials
   – Roles and Responsibilities
   – Access to Expertise and Advice
   – Training for Access to Information Officials
   – Careers in Access
   – Tools
Conclusion

Chapter 8 – Meeting the Information Needs of Canadians Outside the Access to Information Act
Proactive Dissemination
Passive Dissemination – Libraries and Virtual Reading Rooms
Informal Release
Special Disclosure Mechanisms for Research Purposes
Systematic 30-Year Bulk Review
Conclusion

Chapter 9 – Addressing the Information Management Deficit
How did we get here?
An Information Management Strategy
Security Classification and Information Management
Accountability for Information Management
Support for Public Servants
Conclusion

Chapter 10 – Measuring and Reporting on Performance
Annual Reports to Parliament
Management Information
An Analysis of Current Performance Information
Accommodating a Variety of Performance Reporting Needs
Improved Assessment of Access Activities
Conclusion

Chapter 11 – Creating a Culture of Access to Government Information
A Cultural Change
How is a Culture of Access Created?
The Tools to do the Job
Fundamental Values of the Public Service
Awareness and Training for Public Servants
Embedding Access in the Worklife – Incentives and Accountability
Serving Ministers
Management Support
Providing Corporate Leadership
Signalling Change – Awareness and Fostering Key Attitudes
Conclusion

Chapter 12 – Last Word: Enhanced Dialogue on Access to Information

List of Recommendations

Annexes
– Annex 1 – Data
– Annex 2 – Fees Charged by Provincial and International Jurisdictions
– Annex 3 – Glossary
– Annex 4 – List of Research Papers
– Annex 5 – Select Bibliography
– Annex 6 – Task Force Mandate and Membership
– Annex 7 – Advisory Committees Membership
– Annex 8 – Historical Background of Access to Information in Canada

Next Page