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Introduction
Official Secret Act and Other Laws
The Central Civil Services (Conduct) Rules
Confidentiality Classification (CC)
Rights and Obligations
Issues of Implementation
Application of the Act to Legislative and Judiciary
Preface
SARC is constituted to prepare a detailed blueprint for revamping the public and
system.
RTI is a paradigm shift in administration.
RTI is a path-breaking legislation which signals the march from darkness of secrecy to
dawn of transparency.
RTI enables openness in the exercise of power. Means for fighting corruption.
Also, an environment of vigilance promoted participatory democracy (self-governance)
Official Secrets Act, 1923 (OSA) convenient smokescreen to deny public access to
information. Public functioning has traditionally been shrouded in secrecy.
RTI enables participatory decision making process.
An instrument for improving citizen-admin interface. Results in friendly, caring,
effective govt.
E-governance in Judiciary Systematic, classification, Standardization and
categorization of records. (all this is capacity building)
1)
Introduction
Key in ushering people centric governance. Empowerment of people. Good governance
(GG) 4 elements transparency, accountability, predictability, participation.
Transparency
availability of info about govt functioning in the public domain. For
public scrutiny
Makes govt function more objectively
(predictability)
(accountability)
Enables people participation. RTI is the basic necessity of GG.
While right to information is implicitly guaranteed by the constitution, the RTI Act sets
out the practical regime for citizens to secure access to information on all matters of
governance.
RTI Act 2005 is very comprehensive, covers all matters of governance. Minimum
exemptions.
There are bound to be implementation issues and problem areas, so for effective
implementation of RTI Act, some issues need to be addressed by legislative, Judiciary.
Shourie Committee 1997 On RTI and Transparency.
SARC followed this committees recom and recom of NCRWC (National Commission to
Review the Working of the Constitution)
and the reasons, but not what actually transpires within the confines of the Cabinet
room. So Confidentiality is required.
OSA colonial era law; created a culture of secrecy. Confidentiality became the norm
and disclosure the exception.
Civil Service Conduct Rules, 1964 - prohibited communication of an official document to
anyone without authorization.
Indian Evidence Act 1872 also fostered.
RTI overrides OSA or any other acts in case of inconsistency.
Recoms. All laws dealing with national Security (like Section of IPC, OSA, Unlawful
Activities (Prevention) Act 1967, Criminal Laws should be consolidated in a single act
National Security Act (NSA)
To prevent the disruptive activities, like
supporting secession, questioning or
disrupting the sovereignty, territorial integrity, treasonable activities.
Consolidation makes it easy for administration, eliminates ambiguous confusion.
NSA was enacted in 1980 but consolidated very few laws.
OSA should be repealed.
Govt privilege in evidence- Litigation against the state. State has som procedural
protections -> State need not produce certain info in the court. (Indian Evidence Act,
1872) (IEA)
IEA, Code of Civil Procedure, 1908, Code of Criminal Procedure, 1973, etc should be
harmonized with RTI.
Oath of Secrecy (OoS) taken by bureaucrat and ministers prevents them from
revealing many matters. OoS is a legacy of colonial era. Some matters cant be
obtained in the public interest. Oos is against the principles of democratic
accountability and sovereignty. A written undertaking is enough An Oath of
transparency should be administrated instead.
Exempted Orgs Under RTI Act, Armed forces are excluded from its purview. The
exempted list should be updated periodically with changing times and needs *these
are not exempted from disclosure in case of corruption or human right abuses.
3) The Central Civil Services (Conduct) Rules
Similar codes for state civil services, railways, foreign services, all India services etc.
Prohibits unauthorized communication of official info by public servants.
The accent, spirit and language in these rules is on denial of info to public Inhibits
govt. servants from sharing info with public .
These Conduct Rules were amended by DoPT in 2005. But states didnt amend.
Recoms need for amendment by states too, in-line with RTI.
Manual of Office Procedure - prohibits from the disclosure of notes or portion of a file. It
is totally conflict with RTI Act. So it needs to be amended.
4) Confidentiality Classification (CC)
Classification (restricting) of info tendency to classify info even when not needed. (in
the national security interests). Detailed rules of classification (guidelines) -> in
Manual of Office Procedure, (MoOP)
Manual of
Departmental Security Instructions
CC is major contributor to the lack of transparency.
MoOP needs to be amended to bring in harmony with RTI.
Classified info should be brought in to public domain after laps of some specified period
say 30 years depending on the degree of confidentiality (secret, top secret,
confidential etc)
Totally neglected in India very poor 10th fin. Comm.. recom. Special grants for
states for improving record keeping.
Land Records very imp. proof of title; dispute resolution; access to credit is
usually dependent on land ownership, whole administration hinges on the accuracy
and reliability of land records.
So access to land records forms the bulk of requests under RTI but very poor
maintenance of land records in the last 60 years. no comprehensive land survey
took place many land records no longer exist.
Digitalization of Records so land records should be updated by land surveys
properly stored in printed form and electronic form for proper retrieval.
Problems: - In many govt agencies (state and central) record keeping procedures
do not exist, or not updated for decades. Practice of Cataloging, Indexing and
Orderly Storage is absent. Even when records are kept, retrieval of info is virtually
impossible. This results in tendency to give large amount of data which is
unprocessed and irrelevant whenever requested under RTI (no summaries)
Info should be easily retrievable and intelligible.
Measure updated record keeping procedures, cataloging, indexing, storage.
-- correcting all info into intelligible, retrievable info modules.
Digitalization of Records - setting up of a permanent expert agency Public Records
Office (PRO) at central and state levels, by consolidating the existing record
keeping agencies like State Archives etc. PRO will coordinate and supervise the
record-keeping should function under the supervision of CIC o SIS.
Funding for recording keeping one time investment.
PRO will design the procedures, infrastructure.
c) Capacity Building and Awareness Generation Mindset of bureaucracy culture of secrecy needs to be changed
Mindset of citizens reluctance to seek info needs to be changed
Requires sustained training and awareness programs. Even some PIO are not
familiar with some provision of the Act.
Awareness intense debates in media, pubic debates but at grass roots level,
awareness is very low.
Mostly limited to govt advertisements in print media. Media should involve mass
communication techniques. Govt. should organize educational programs. Civil
society (NGOs) should be involved.
Training of not just PIO, but ever y employee of govt, atleast for one day in a year.
d) Monitoring Mechanism
Supervising, detecting problems in implementation, rectifying them at several levels
- within the public authority, a group of authorities in a territory, for a whole state,
the county.
For each department/agency, the head of the organization will be responsible for
monitoring.
Some nodal dept or ministry or agency - at the apex of monitoring mechanism.
Nodal dept should logically be CIC or SIC.
CIC functions largely limited they only hear complaints and appeals and submit
annual reports.
Recoms CIC should also be made the coordinating agency between all the SIC,
which are currently independent. Coordination required for uniform implementation
of the Act, to avoid duplication of efforts, replication of good practices from one
state to another, minimization of litigation, for effective functions of nationwide web
based info dissemination system
6) Issues of Implementation
Applicants need not furnish any reason behind the request or any personal
details this is so to ensure that the there is no subjective evaluation of the
request, or denial on specious ground.
Cases Public Servants facing disciplinary charged have repeatedly
attempted to use the Act to intimidate, harass, and humiliate seniors with
requests that have been vexations.
Such frivolous requests may overwhelm the system; defeat the very
purpose of the Act. Terror of the administration may be paralyzed, seriously
undermining delivery of services.
Results in Breakdown of discipline, insubordination, disharmony in public
institutions, divergence of the resources to unproductive purposes.
Recoms PIO should be given the power to deny (within 15 days of
receiving) the requests of they are patently (clearly) frivolous and vexatious
- these refusals shall be examined by CIC/SIC. = this will deter the PIO, from
unwarrantably denying requests under the garb of frivolous requests.
Conclusion
RTI effectiveness depends on 3 fundamental shifts from culture of secrecy to culture of
openness; from personalized despotism to authority coupled with accountability; from
unilateral decision making to participative governance.
RTI cant change everything. It is only a beginning.
Creation of new institution, changes in laws and procedures, changes in attitudes and
traditions of people and public servants, adequate peoples participation.
More needs to be done to achieve accountability. Protection of whistle blowers,
decentralization of powers, etc
Redesigning the processes of governance.
by Shrey Rawat
Sources
1) Amarkeshs Hand-Written Notes available at https://drive.google.com/folderview?
id=0BzuxVwOA4U0YRjcwOWRjTXRJX2s&usp=sharing
2) Original ARC Reports.
I have used Amarkeshs hand-written ARC Reports Notes to prepare this summary
notes and also took
Reference from the original ARC Reports whenever there was a requirement to add
further details.
So here you have the Summary of one of the ARC reports > much properly formatted
spelling errors free
more detailed and editable, Enjoy.
Ill share the summaries of rest of the reports too, once theyll get finished. (Except 7th
and 14th Reports)
*Requesting*: Someone please prepare and share a summary, similarly formatted, of
the 7th and the 14th Reports.