EU-China Information Society Project 中国欧盟信息社会项目 Access to Government Information in Europe and China: What Lessons to be Learned? 欧洲与中国政府信息公开：我们能够学到什么？ Megan Carter The Constitution Unit, University College, London 英国伦敦大学学院宪法组·伦敦 Lv Yanbin / 吕艳滨 Chinese Academy of Social Sciences (CASS), Beijing 中国社会科学院,北京 This report was conducted for the EU-China Information Society Project (supervised and edited by Dr. Thomas Hart) 由中国-欧盟信息社会项目法规专家 Thomas Hart 先生指导修订 November 2007 2007 年11月 This is the English version of the report. For the Chinese version, please contact the Project Office on: [email protected] 此报告为英文报告，如需中文版本请联系项目办公室： [email protected] The EU-China Information Society project is a joint initiative between the Chinese Government and the European Union. The project started in July 2005 and runs through to the end of June 2009. The project aims to promote economic and social development through Informatization and works closely with the State Council Informatization Office (SCITO) in China. For more information see www.eu-china-infso.org. For information on the regulatory activities within the project, contact Dr Thomas Hart at [email protected]. 中国—欧盟信息社会项目是中国政府和欧盟之间的合作项目。项目从 2005 年 7 月开始，到 2009 年 6 月结束。通过与国务院信息化工作办公室紧密合作，项目旨在通过信息化推动中国的 经济和社会发展。更多详情，请浏览项目网站 www.eu-china-infso.org。有关项目法规对话部分 的活动，请联系 Thomas Hart 博士，电子邮箱 [email protected]。 II Table of Contents BACKGROUND TO THE RESEARCH...............................................................................1 1. INTRODUCTION .......................................................................................................3 1.1 About this Report.......................................................................................................... 3 1.1.1 Purpose of this Report and Acknowledgements...................................................................3 1.1.2 Report Structure...................................................................................................................3 1.1.3 Areas For Future Investigation.............................................................................................4 1.2 Use of the term ‘FOI’ to cover all types of information access..................................... 4 1.3 Overview of FOI in the European Union Member States............................................. 5 1.3.1 Multiple Administrative Contexts ..........................................................................................5 1.3.2. History of Adoption of FOI...................................................................................................6 1.3.3 Progress Towards Harmonisation of FOI Regimes Across the EU ....................................11 1.4 Current Status and Development of Access to Government Information in China.... 11 1.5 History of Legislation on Access to Government Information in China...................... 13 1.6 Characteristics of the Ordinance on Access to Government Information of the PRC 13 1.6.1 Legal Nature Description: Administrative Law....................................................................13 1.6.2 Defined Individual Rights on Requesting Government Information....................................14 1.6.3 Narrowed Exceptions to Disclosure ...................................................................................14 1.6.4 A Wide Range of Subjects Covered by Government Information Disclosure.....................14 1.6.5 Specific Authorities.............................................................................................................15 1.6.6 Detailed Provisions on Active Dissemination .....................................................................15 1.6.7 Remedial Policy .................................................................................................................16 2. FEE SCHEMES AND EXCEPTIONS...........................................................................17 2.1 Fee Schemes and Exceptions in EU Member States ................................................ 17 2.1.1. Overview of Practices .......................................................................................................17 2.1.2 Exceptions to Fees and Charges .......................................................................................20 2.1.3 How Fees And Charges Are Determined ...........................................................................21 2.1.4 Effect of Fees and Charges (Including Where Amendments To The System Have Been Made)..........................................................................................................................................21 2.2 Fee Schemes for Access to Government Information in China................................. 22 2.3 Recommendations ..................................................................................................... 23 3. FOI STRUCTURES.................................................................................................25 3.1 FOI Structures in the EU ............................................................................................ 25 3.1.1 FOI Structures across Whole of Government.....................................................................25 3.1.1.1 Structure of Central Bodies .........................................................................................25 3.1.1.2 Roles and functions of central bodies .........................................................................26 Policy and systems development role: ....................................................................................26 Training and advisory role:......................................................................................................26 Supervisory / monitoring role: .................................................................................................27 Public awareness / promotional role: ......................................................................................27 III Dispute resolution / review role: ..............................................................................................27 3.1.2 FOI Structures Within and Across Government .................................................................30 3.1.2.1 Advisory Groups and Steering Committees ................................................................30 3.1.2.2 FOI Networks ..............................................................................................................30 3.1.2.3 Cross-agency co-ordination: Clearing House..............................................................31 3.1.3 FOI Structures within Public Bodies ...................................................................................32 3.1.4 Dispute Resolution and Review Structures ........................................................................33 3.1.4.1 Internal Review ...........................................................................................................34 3.1.4.2 External Review ..........................................................................................................34 3.1.4.3 Powers of External Review Bodies .............................................................................38 3.2 Supervision and Remedies for Access to Government Information in China ............ 39 3.2.1 Supervising Access to Government Information ................................................................39 3.2.2 Remedial Measures in Access to Government Information ...............................................41 3.2.2.1 Current Remedial System in China .............................................................................42 3.2.2.2 Overall Views on Remedial Measures in Access to Government Information Regionally ................................................................................................................................................45 3.3 Recommendations for Best Practice.......................................................................... 46 3.3.1 Central Body ......................................................................................................................46 3.3.2 Review Body ......................................................................................................................46 3.3.3 Other Recommendations ...................................................................................................46 4. FOI TRAINING.......................................................................................................49 4.1 FOI Training in the EU................................................................................................ 49 4.1.1 Trained Staff Essential for Information Access...................................................................49 4.1.2 Model For Developing A Training Strategy ........................................................................51 4.1.3 Types of Training ...............................................................................................................53 4.1.3.1 FOI strategic overview for senior staff.........................................................................53 4.1.3.2 FOI awareness for all staff / public contact staff..........................................................53 4.1.3.3 Specialist FOI training .................................................................................................54 4.1.3.4 FOI practitioner training...............................................................................................54