Malawi
First adopted: 2017
Last modified: n/a
RTI Rating last updated: 2017-04
Introduction
Despite some shortcomings, Malawian RTI law is relatively strong compared to other RTI laws. It is broad in scope, applying to all three branches of government, including all organs of the executive, as well as private entities that carry out public functions. The procedures for making and responding to requests are adequate, but could be improved, for example by not requiring reasons to be given for requests, by providing requesters with a receipt and by tightening up the time limits for responding. Although most of the exceptions protect legitimate interests and are harm-tested, there is no public interest override or clause providing for the RTI law to override exceptions found in other laws, although both of these features were in draft laws. Appeals go to a relatively independent Human Rights Commission, although it lacks the power to make binding decisions. There are sanctions for obstructing access, as well as protections for good faith disclosures, and a strong set of promotional measures.
id | Section | Points | Max score |
---|---|---|---|
1 | Right of Access | 3 | 6 |
2 | Scope | 27 | 30 |
3 | Requesting Procedures | 15 | 30 |
4 | Exceptions & Refusal | 18 | 30 |
5 | Appeals | 21 | 30 |
6 | Sanctions & Protections | 6 | 8 |
7 | Promotional Measures | 14 | 16 |
∑ = 104 | ∑ = 150 |
Section | I | Description | Scoring instructions | Max score | Findings | Points | Article | Comments |
---|---|---|---|---|---|---|---|---|
1. Right of Access |
1 | The legal framework (including jurisprudence) recognises a fundamental right of access to information. | Score 0 for no constitutional right to information, 1 point for a limited constitutional right, 2 points for full constitutional recognition of a public right of access to information. | 2 | Partially | 1 | 37. Subject to any Act of Parliament, every person shall have the right of access to all information held by the State or any of its organs at any level of Government in so far as such information is required for the exercise of his rights. | Constitutional, but limited to cases where information needed for protection of a right. The Constitution of Malawi can be found here. |
1. Right of Access |
2 | The legal framework creates a specific presumption in favour of access to all information held by public authorities, subject only to limited exceptions. | No=0, Partially=1, Yes=2 | 2 | Partially | 1 | 5(1) A person shall have the right to access information, in so far as that information is required for the exercise of his rights, which is in the custody or under the control of a public body or relevant private body to which this Act applies, in an expeditious and inexpensive manner. | Only guaranteed where needed to exercise a right. |
1. Right of Access |
3 | The legal framework contains a specific statement of principles calling for a broad interpretation of the RTI law. The legal framework emphasises the benefits of the right to information. | One point for each characteristic. | 2 | Partially | 1 | 6(1) Subject to the Constitution and any other written law, when interpreting this Act, the presumption that favours access to information shall be preferred to that restricting information. | Provision on interpretation but no list of benefits which go beyond those relating direction to access. |
2. Scope |
4 | Everyone (including non-citizens and legal entities) has the right to file requests for information. | Score 0 point if only residents/citizens; 1 point for all natural persons; 1 point for legal persons. | 2 | Partially | 1 | 5(1) A person shall have the right to access information, in so far as that information is required for the exercise of his rights, which is in the custody or under the control of a public body or relevant private body to which this Act applies, in an expeditious and inexpensive manner. | Refers to person; not clear if legal persons included. |
2. Scope |
5 | The right of access applies to all material held by or on behalf of public authorities which is recorded in any format, regardless of who produced it. | Score 1-3 points if limited definition of information information such as not "internal documents" or databases excluded, 4 points for all information with no exceptions. | 4 | YES | 4 | 2. “information” includes an original or copy of any material, record or document which communicates facts, opinion, data or any other matter regardless of its form, characteristics or date of creation, that is in the custody or under the control of a public body, private body or any information holder to which this Act applies; “record” means any recorded information, in any format, including an electronic format in the possession or control of a public body or relevant private body, whether or not that body created it. | Information and record defined broadly. |
2. Scope |
6 | Requesters have a right to access both information and records/documents (i.e. a right both to ask for information and to apply for specific documents). | Score 1 point for only documents, 1 point for information. | 2 | Partially | 1 | 2. “information” includes an original or copy of any material, record or document which communicates facts, opinion, data or any other matter regardless of its form, characteristics or date of creation, that is in the custody or under the control of a public body, private body or any information holder to which this Act applies; “record” means any recorded information, in any format, including an electronic format in the possession or control of a public body or relevant private body, whether or not that body created it. | Not entirely clear whether this includes both documents and information. |
2. Scope |
7 | The right of access applies to the executive branch with no bodies or classes of information excluded.This includes executive (cabinet) and administration including all ministries, departments, local government, public schools, public health care bodies, the police, the armed forces, security services, and bodies owned or controlled by the above. | Score 4 points for central government agencies covered: 1 for the head of state, 1 for ministries, 1 for other non-statutory agencies created by the ministries, 1 for state and local government if the government is unitary. If it´s a federalist system, 2 points for the non-statutory agencies. This can be determined by examining the length and thoroughness of the list, if such a schedule exists. Score 1 point for the archives. Add three points and deduct 1 for each exempted central agency (such as the armed forces, police, etc). | 8 | YES | 8 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 1: The Executive, all its organs and persons in their service. |
2. Scope |
8 | The right of access applies to the legislature, including both administrative and other information, with no bodies excluded. | Score 1 point if the law only applies to administrative documents, 2-3 points if some bodies excluded, 4 points if all legislative branch at all levels of government | 4 | YES | 4 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 1: The Executive, all its organs and persons in their service. |
2. Scope |
9 | The right of access applies to the judicial branch, including both administrative and other information, with no bodies excluded. | Score 1 point if the law only applies to administrative documents, 2-3 points if some bodies excluded, 4 points if all judicial branch at all levels of government | 4 | YES | 4 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 1: The Executive, all its organs and persons in their service. |
2. Scope |
10 | The right of access applies to State-owned enterprises (commercial entities that are owned or controlled by the State). | Score 1 point if some, 2 points if all | 2 | YES | 2 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 1: The Executive, all its organs and persons in their service. |
2. Scope |
11 | The right of access applies to other public authorities, including constitutional, statutory and oversight bodies (such as an election commission or information commission/er). | Score 1 point if some bodies, 2 points if all | 2 | YES | 2 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 4. Institutions and organizations whether established by or under an Act of Parliament or otherwise, in which the Government holds shares or exercises financial or administrative control and persons in the service of those institutions and organisations. Schedule 6: Commissions and persons in the service of those commissions established by or under the Constitution or any Act of Parliament. |
2. Scope |
12 | The right of access applies to a) private bodies that perform a public function and b) private bodies that receive significant public funding. | 1 point for public functions, 1 point for public funding | 2 | Partially | 1 | 2. “public body” means the Government, a statutory body, or any other body appointed by the Government to carry out public functions. | Schedule 5: Non-Government organizations constituted for public benefit purposes and persons in their service. Schedule 7: Organisations contracted by Government to do work for government and persons in the service of those organisations. Seems to cover public functions but not necessarily public funding. |
3. Requesting Procedures |
13 | Requesters are not required to provide reasons for their requests. | Y/N answer 0 or 2 points | 2 | NO | 0 | 54. Any person who, having being granted access to information under this Act, uses that information – (a) for unlawful purposes; (b) for reasons other than those for which a request for information was made, without the authority of an information holder; or (c) in such a manner so as to be detrimental to the interests of public officers, information holders or public interest, commits an offence, and shall, on conviction be liable to a fine of three million kwacha (K3,000,000.00) and imprisonment for three years. | Not mentioned in the requesting procedures, and the fact that the Act contains an offence for using information for alternative reasons is enormously problematic. |
3. Requesting Procedures |
14 | Requesters are only required to provide the details necessary for identifying and delivering the information (i.e. some form of address for delivery). | Score Max 2 points and deduct if requesters are required to give any of the following: ID number, telephone number, residential address, etc. | 2 | Partially | 1 | 18(3) The request for information shall provide sufficient details to enable the information officer to identify the person making the request. (4) For purposes of subsection (1), a request for information shall also be treated as made in writing where the text of the request is– (a) transmitted by electronic means; (b) received in legible form; and (c) capable of being used for subsequent reference. | 18(3) requires identification of the person. |
3. Requesting Procedures |
15 | There are clear and relatively simple procedures for making requests. Requests may be submitted by any means of communication, with no requirement to use official forms or to state that the information is being requested under the access to information law. | Max 2 points. Considerations include that there is no requirement to state that the request is under the RTI law, nor to use an official form, nor to identify the document being sought. | 2 | YES | 2 | 18(1) A request for information may be made orally or in writing, and shall be addressed to an information officer: Provided that an illiterate and indigent person, or a minor may request a third party to obtain the information on his behalf from an information holder. (2) Where an applicant makes an oral request for information, the information officer shall reduce the oral application into writing, which shall then be read to the understanding of the applicant to secure his consent that the content of the written document fully represents the content of his oral request for information made to the said official, after which, a copy of the written request for information shall be provided to the applicant for his record, and the original shall be kept by the information holder. (3) The request for information shall provide sufficient details to enable the information officer to identify the person making the request. (4) For purposes of subsection (1), a request for information shall also be treated as made in writing where the text of the request is– (a) transmitted by electronic means; (b) received in legible form; and (c) capable of being used for subsequent reference. | |
3. Requesting Procedures |
16 | Public officials are required to provide assistance to help requesters formulate their requests, or to contact and assist requesters where requests that have been made are vague, unduly broad or otherwise need clarification. | Score 1 point for help in formulation and 1 point for clarification procedures | 2 | YES | 2 | 12(1) Every information holder shall, within twelve months from the commencement of this Act,- (a) designate or appoint one or more of its officers as information officers; and (b) establish processes and procedures for handling all obligations under this Act. (2) Every information officer designated or appointed under subsection (1), shall, in addition to handling all requests for information made pursuant to section 18, render assistance to any person seeking such information and ensure compliance by the institution with all obligations under this Act, including the obligation to disclose all categories of information listed under section 15. | |
3. Requesting Procedures |
17 | Public officials are required to provide assistance to requesters who require it because of special needs, for example because they are illiterate or disabled. | Score Yes=2 point, No=0 | 2 | Partially | 1 | 18. (1) A request for information may be made orally or in writing, and shall be addressed to an information officer: Provided that an illiterate and indigent person, or a minor may request a third party to obtain the information on his behalf from an information holder. 22. An information holder, shall, having regard to any specific request by an applicant of the format in which the applicant wants requested information to be given, as well as the circumstances and the costs to provide the information in the manner requested, provide the information requested - (d) in the case of an applicant with sensory disability, in a format that allows the applicant to view, read or listen to the record, document or information. | No clear that special attention needs to be given to the disabled, over and above the general obligation of assisstance for everyone. |
3. Requesting Procedures |
18 | Requesters are provided with a receipt or acknowledgement upon lodging a request within a reasonable timeframe, which should not exceed 5 working days. | Score 1 point for receipt, 1 point for max 5 working days | 2 | NO | 0 | Not mentioned. | |
3. Requesting Procedures |
19 | Clear and appropriate procedures are in place for situations where the authority to which a request is directed does not have the requested information. This includes an obligation to inform the requester that the information is not held and to refer the requester to another institution or to transfer the request where the public authority knows where the information is held. | Score: 1 point for information not held, 1 for referrals or 2 for transfers | 2 | Partially | 1 | 23. (1) Where an information holder to which a request for information is made considers that another institution has greater interest in the information requested, the information officer to which the request was initially made, shall, within three working days after the request is received, transfer the request to the other institution and give written notice of the transfer of the request to the applicant. (2) For the purposes of this section- (a) the processing period specified in section 19 shall apply to the institution to which the request is transferred; and (b) an institution has greater interest in information requested if - (i) a record or document, containing the information was originally produced by or for the institution; or (ii) in the case of information not originally produced by or for the institution, the said institution was the first recipient of the original information. | 23 provides for transfers when the other body has a greater interest. |
3. Requesting Procedures |
20 | Public authorities are required to comply with requesters’ preferences regarding how they access information, subject only to clear and limited overrides (e.g. to protect a record). | Score: 2 points for Yes, only 1 point if some limitations | 2 | Partially | 1 | 22. An information holder, shall, having regard to any specific request by an applicant of the format in which the applicant wants requested information to be given, as well as the circumstances and the costs to provide the information in the manner requested, provide the information requested - (a) in a permanent form or in another form acceptable to the applicant; (b) with a reasonable opportunity to inspect the original document or record containing the information; (c) in a digest or summary of the information, document or record; or (d) in the case of an applicant with sensory disability, in a format that allows the applicant to view, read or listen to the record, document or information. | Allows for delivery or inspection, but no mention of deciding between formats for delivery (electronic vs. paper, etc.). |
3. Requesting Procedures |
21 | Public authorities are required to respond to requests as soon as possible. | Score: No=0, Yes=2 points | 2 | NO | 0 | Not mentioned. | |
3. Requesting Procedures |
21 | Public authorities are required to respond to requests as soon as possible. | Score: No=0, Yes=2 points | 2 | Partially | 1 | 19(1) Where a request for access to information is made, an information officer shall, within fifteen working days after the request is received, - (a) give written notice to the applicant as to whether the information exists and, where it does, whether access to the entire information requested or a part thereof will be given; and (b) where access shall be granted, promptly give the applicant access to the information. | 15 working days. |
3. Requesting Procedures |
23 | There are clear limits on timeline extensions (20 working days or less), including a requirement that requesters be notified and provided with the reasons for the extension. | - | 2 | YES | 2 | 19. (2) Where the information holder requires further information in order to identify or locate the information requested, the applicant shall be notified of the need for such further information within seven working days of receiving the request and in that case, the period referred to in subsection (1) shall be calculated from the date on which such further information is received from the applicant. | No extensions. |
3. Requesting Procedures |
24 | It is free to file requests. | Score: No=0, Yes=2 points | 2 | YES | 2 | 24. (1) Subject to subsection (2), a person shall not pay any fees on lodging an application for request of information. (2) The fees payable by an applicant under this Act, shall be limited to reasonable, standard charges for document duplication, translation or transcription where necessary. | |
3. Requesting Procedures |
25 | There are clear rules relating to access fees, which are set centrally, rather than being determined by individual public authorities. These include a requirement that fees be limited to the cost of reproducing and sending the information (so that inspection of documents and electronic copies are free) and that a certain initial number of pages (at least 20) are provided for free. | Score 1 point for fees being limited to reproduction and delivery costs and set centrally, 1 point for at least 20 pages free of charge or for fees being optional | 2 | YES | 2 | 8. The Commission, in its oversight functions, have the power to: (h) make recommendations to the Minister on the fees payable with regard to processing of requests for information. 24. (1) Subject to subsection (2), a person shall not pay any fees on lodging an application for request of information. (2) The fees payable by an applicant under this Act, shall be limited to reasonable, standard charges for document duplication, translation or transcription where necessary. 55. (1) The Minister may make regulations for the better carrying out of this Act. (2) Without prejudice to the generality of subsection (1), the regulations may prescribe – (g) fees payable for processing requests for information. | |
3. Requesting Procedures |
26 | There are fee waivers for impecunious requesters. | - | 2 | NO | 0 | Not mentioned. | |
3. Requesting Procedures |
27 | There are no limitations on or charges for reuse of information received from public bodies, except where a third party (which is not a public authority) holds a legally-protected copyright over the information. | Score: No=0, Yes=2 points | 2 | NO | 0 | 54. Any person who, having being granted access to information under this Act, uses that information – (a) for unlawful purposes; (b) for reasons other than those for which a request for information was made, without the authority of an information holder; or (c) in such a manner so as to be detrimental to the interests of public officers, information holders or public interest, commits an offence, and shall, on conviction be liable to a fine of three million kwacha (K3,000,000.00) and imprisonment for three years. | |
4. Exceptions & Refusal |
28 | The standards in the RTI Law trump restrictions on information disclosure (secrecy provisions) in other legislation to the extent of any conflict. | Score 4 points for a resounding "yes" and 1/2/3 points if only for some classes of information or for some exceptions. If the state secrets law is not trumped by the RTI law max score is 2 points. | 4 | NO | 0 | 6. (1) Subject to the Constitution and any other written law, when interpreting this Act, the presumption that favours access to information shall be preferred to that restricting information. | An earlier draft contained an override clause, but this was deleted from the final version. |
4. Exceptions & Refusal |
29 | The exceptions to the right of access are consistent with international standards. Permissible exceptions are: national security; international relations; public health and safety; the prevention, investigation and prosecution of legal wrongs; privacy; legitimate commercial and other economic interests; management of the economy; fair administration of justice and legal advice privilege; conservation of the environment; and legitimate policy making and other operations of public authorities. | Score 10 points and then deduct 1 point for each exception which either (a) falls outside of this list and/or (b) is more broadly framed | 10 | Partially | 8 | 3. (1) This Act shall apply to information in the custody or under the control of any information holder listed in the Schedule hereto. (2) This Act shall not apply to the following information - (a) Cabinet records and those of its committees; (b) court records prior to conclusion of a matter. | |
4. Exceptions & Refusal |
30 | A harm test applies to all exceptions, so that it is only where disclosure poses a risk of actual harm to a protected interest that it may be refused. | Score 4 points and then deduct 1 point for each exception which is not subject to the harm test | 4 | Partially | 3 | 30. An information holder may not disclose information which has been requested where disclosure of the information would reasonably be expected to - (a) cause damage to the security or defence of Malawi or would divulge information which relates to the defence or security of a foreign government which is communicated in confidence by, or on behalf of such foreign government. | "Relates to" rather than would "harm". Also, no reason why this interest is not already protected under the international relations exception. |
4. Exceptions & Refusal |
31 | There is a mandatory public interest override so that information must be disclosed where this is in the overall public interest, even if this may harm a protected interest. There are ‘hard’ overrides (which apply absolutely), for example for information about human rights, corruption or crimes against humanity. | Consider whether the override is subject to overarching limitations, whether it applies to only some exceptions, and whether it is mandatory. | 4 | NO | 0 | While present in earlier drafts, unfortunately the final version of law does not contain any public interest override. | |
4. Exceptions & Refusal |
32 | Information must be released as soon as an exception ceases to apply (for example, after a contract tender process decision has been taken). The law contains a clause stating that exceptions to protect public interests do not apply to information which is over 20 years old. | Score 1 point for each | 2 | Partially | 1 | 28. (2) The Minister shall, by notice published in the Gazette, declassify cabinet records after thirty years. | Sunset clause applies only to Cabinet records. |
4. Exceptions & Refusal |
33 | Clear and appropriate procedures are in place for consulting with third parties who provided information which is the subject of a request on a confidential basis. Public authorities shall take into account any objections by third parties when considering requests for information, but third parties do not have veto power over the release of information. | Score: 1 point for consultation, 1 further point if original time frames must be respected and the law allows for expedited appeals. | 2 | YES | 2 | 20. (1) Where an information holder determines that a request for access to information relates to confidential or commercial interests of a third party, the information holder shall notify the third party in writing of the details of the request. (2) The third party shall within ten working says from the date of receipt of the notice respond to the notice in subsection (1) in writing and indicate whether he considers the information to be confidential and give reasons why the information should not be disclosed. (3) If, based on the response in subsection (2), the information holder determines that harm is in all likelihood bound to occur to the third party, the information holder shall not disclose the information. | |
4. Exceptions & Refusal |
34 | There is a severability clause so that where only part of a record is covered by an exception the remainder must be disclosed. | Score 1 point if yes but sometimes can be refused (eg: if deletions render meaningless the document) and 2 points if partial access must always be granted | 2 | YES | 2 | 21. Where an information holder determines that part of the information requested is exempt from disclosure, the information holder shall disclose the remainder of the information which is not exempt from disclosure and shall, accordingly inform the person who made the request. | |
4. Exceptions & Refusal |
35 | When refusing to provide access to information, public authorities must a) state the exact legal grounds and reason(s) for the refusal and b) inform the applicant of the relevant appeals procedures. | Score Y/N: 1 point for a and 1 point for b | 2 | YES | 2 | 25. Where an information holder refuses to disclose information which has been requested either in whole or in part, the information holder shall, in writing, notify the applicant of the refusal and - (a) state the grounds for the refusal including the specific provisions of this Act relied on to justify its decision; and (b) inform the applicant of the availability of a process for reviewing the decision, the institution to which the review may be lodged and the period within which the application for review may be made. | |
5. Appeals |
36 | The law offers an internal appeal which is simple, free of charge and completed within clear timelines (20 working days or less). | Score 2 points if the internal appeal fulfills these criteria, 1 point if an appeal is offered that does not fulfill this criteria, 0 for no internal appeals. | 2 | YES | 2 | 41. (1) The head of an institution to which an application for internal review of a decision is submitted in accordance with section 42, shall, within five working days of receipt of the application for review – (a) make a new decision on behalf of the institution; and (b) notify the applicant and, where relevant, the third party of that decision in writing. (2) Where the head of the information holder decides to disclose the information requested, the notice to the applicant referred to in subsection (1) shall state the fees if any, payable for access to the information requested and the form in which access to the information will be given. (3) Where an applicant has been given notice that access to the information has been granted, that applicant shall be given access to the information immediately, or upon payment of fees if so required. (4) Where the head of the information holder has determined to disclose information containing third party information, the applicant may not be granted access to that information until such time as any right of the third party to oppose the release of the information has expired, or any appeal lodged by the third party has been finally determined. (5) If the head of the information holder decides not to disclose information requested, the notice to the applicant referred to in subsection (1) shall- (a) state reasons for the refusal with reference to specific provisions of this Act upon which the refusal is based; and (b) inform the applicant that he may lodge an appeal against the decision. 42. The decision referred to in section 43 shall be made by the head of the information holder personally and may not be delegated to any other person. 43. Where the head of the information holder fails to give a decision on an application for request for an internal review within the time specified in section 40, he shall be deemed to have affirmed the original decision of the information officer which is the subject of the application for internal review. | |
5. Appeals |
37 | Requesters have the right to lodge an (external) appeal with an independent administrative oversight body (e.g. an information commission or ombudsman). | 1 for partial, 2 for yes | 2 | YES | 2 | 8. The Commission, in its oversight functions, have the power to – (c) review, on application, decisions of information holders with regard to requests for information and make recommendations to the relevant information holder resulting from applications made. 44. (1) A person who has exhausted the internal review mechanism of the information holder may apply to the Commission for the review of a decision of that information holder. | |
5. Appeals |
38 | The member(s) of the oversight body are appointed in a manner that is protected against political interference and have security of tenure so that they are protected against arbitrary dismissal (procedurally/substantively) once appointed. | Score: 1 point for appointment procedure, 1 point for security of tenure | 2 | YES | 2 | Constitution 129. There shall be a Human Rights Commission the primary functions of which shall be the protection and investigation of violations of the rights accorded by this Constitution or any other law. 130. The Human Rights Commission shall, with respect to the applications of an individual or class of persons, or on its own motion, have such powers of investigation and recommendation as are reasonably necessary for the effective promotion of the rights conferred by or under this Constitution, but shall not exercise a judicial or legislative function and shall not be given powers so to do. 131. (1) The Human Rights Commission shall consist of - a. the person for the time being holding the office of Law Commissioner; b. the person for the time being holding the position of Ombudsman: c. Provided that, save as prescribed by this section, no other member of the Human Rights Commission shall be a person in any public office or the President or Vice-President, a Minister or Deputy Minister or a member of Parliament. d. such persons as shall be nominated from time to time in that behalf by those organizations that are considered in the absolute discretion of both the Law Commissioner and the Ombudsman to be reputable organizations representative of Malawian Society and that are wholly or largely concerned with the promotion of the rights and freedoms guaranteed by this Constitution or any other written law. 2. The Law Commissioner and the Ombudsman shall jointly refer the name of persons nominated under paragraph (c) of subsection (1) to the President who shall formally appoint such persons as members of the Human Rights Commission. 3. A member of the Human Rights Commission, other than a member by virtue of paragraph (a) or (b) of subsection (1), shall continue to be members of the Commission until such time as they are removed from office on the grounds of - a. incompetence; b. incapacity; or c. in circumstances where the member is compromised to the extent that his or her ability to impartially exercise the duties of his or her office is seriously in question. 5. (1) (Human Rights Commission Act) Appointed members of the Commission shall hold office for a term of three years, and shall be eligible for reappointment. | Appointment process seems to run through the Law Commissioner and the Ombudsman, who seem to be reasonably independent. |
5. Appeals |
39 | The oversight body reports to and has its budget approved by the parliament, or other effective mechanisms are in place to protect its financial independence. | Score 1 point for reports to parliament, 1 point for budget approved by parliament | 2 | YES | 1 | Human Rights Commission Act: Art. 33 The Commission shall be liable to account to Parliament for its funds in the manner applicable to Government departments and the accounts of the Commission shall be liable to audit by the Auditor General. Art. 37 In addition to any specific report which the Commission may at any other time submit to any authority under this Act, the Commission shall within three months after the end of every calendar year submit a report to Parliament on the activities it has carried out during that calendar year. | |
5. Appeals |
40 | There are prohibitions on individuals with strong political connections from being appointed to this body and requirements of professional expertise. | Score 1 point for not politically connected, 1 point for professional expertise | 2 | Partially | 1 | Constitution 129. There shall be a Human Rights Commission the primary functions of which shall be the protection and investigation of violations of the rights accorded by this Constitution or any other law. 130. The Human Rights Commission shall, with respect to the applications of an individual or class of persons, or on its own motion, have such powers of investigation and recommendation as are reasonably necessary for the effective promotion of the rights conferred by or under this Constitution, but shall not exercise a judicial or legislative function and shall not be given powers so to do. 131. 1. The Human Rights Commission shall consist of - a. the person for the time being holding the office of Law Commissioner; b. the person for the time being holding the position of Ombudsman: c. Provided that, save as prescribed by this section, no other member of the Human Rights Commission shall be a person in any public office or the President or Vice-President, a Minister or Deputy Minister or a member of Parliament. d. such persons as shall be nominated from time to time in that behalf by those organizations that are considered in the absolute discretion of both the Law Commissioner and the Ombudsman to be reputable organizations representative of Malawian Society and that are wholly or largely concerned with the promotion of the rights and freedoms guaranteed by this Constitution. 2. The Law Commissioner and the Ombudsman shall jointly refer the name of persons nominated under paragraph (c) of subsection (1) to the President who shall formally appoint such persons as members of the Human Rights Commission. Human Rights Commission Act Art. 4 (1) The procedure for nominating appointed members shall involve first the issuing of a public advertisement, signed jointly by the Law Commissioner and the Ombudsman, directed to the organisations described in section 131(1)(c) of the Constitution, being those which both the Law Commissioner and the Ombudsman, in their absolute discretion, consider to be reputable organisations representative of Malawian society and that are wholly or largely concerned with the promotion of rights and fundamental freedoms guaranteed by the Constitution. (2) The advertisement under subsection (1) shall invite all appropriate organizations to nominate up to two persons who are independent, non-partisan and of high integrity and standing from within or outside the organization for appointment as member or members of the Commission, and to do so within thirty days of the date of the publication of the advertisement and in writing addressed to the Commission, giving the full name and address of any person so nominated and his curriculum vitae. (3) The Law Commissioner and the Ombudsman shall – (a) jointly assess the reputation of the nominating organisations and may, for that purpose, seek other or further information pertaining to any nominated person from the person himself or any other person or source before recommending who among the nominated persons shall be formally appointed by the President as members of the Commission; (b) according to their assessment under paragraph (a), keep a list of reserved names of nominated persons to be appointed to fill any casual vacancy for the remainder of the term of a member who vacates office before the expiry of the term prescribed in section 5(1). | Some protections for independence, but no requirement for professional expertise. |
5. Appeals |
41 | The independent oversight body has the necessary mandate and power to perform its functions, including to review classified documents and inspect the premises of public bodies. | Score 1 point for reviewing classified documents, 1 point for inspection powers | 2 | YES | 2 | 8. The Commission, in its oversight functions, have the power to – (j) enter and inspect premises to which an application for review relates and inspect, make copies of, and take extracts from any material relevant to the review process or proceedings as the case may be. 45. The Commission may, during investigations relating to any application for a review under this Part, examine any record that is under the custody or control of an information holder. | Inspection powers are included in 8(2)(j). |
5. Appeals |
42 | The decisions of the independent oversight body are binding. | Score N=0, Y=2 points | 2 | NO | 0 | 46. (1) Where the commission finds that a person is entitled to access the information requested, it shall immediately provide the head of the head of the information holder concerned with a report containing - (a) the findings of the review and the determinations made by the Commission; and (b) a direction that notice be given, within the time specified in the report, to the Commission of all actions taken to implement the determinations in the report. (2) Where the Commission finds that the applicant is not entitled to access the information requested, the Commission shall, within seven working days from the date of making the determination, inform the applicant of - (a) the decision in writing stating the reasons thereof; and (b) the right to apply to Court for a review of the determination. (3) The Commission shall give a copy of the decision made under - (a) subsection (1)(a), to the applicant and any third party that made representations to the Commission in the course of the proceedings; and (b) subsection (1)(b), to the head of the information holder concerned. 47. The Commission shall, within thirty working days from the date the determination is made, inform the applicant and any third party of whether the information holder concerned has taken action to comply with the determinations of the Commission. Human Rights Commission Act Art. 22 Upon hearing complaints brought before it or based upon any investigations it has carried out or at any stage, the Commission – (a) shall seek an amicable settlement through conciliation and, where appropriate, on the basis of confidentiality; (b) shall inform the complainant and the respondent of their respective rights, remedies or obligations and the Commission shall promote a party’s access to the remedies; (c) may, as provided by sections 15(2) and 46(2)(b) of the Constitution, render such assistance or advice as the party that brought the complaint or petition may reasonably require; (d) may transmit a complaint, petition or any other matter to any other competent authority as prescribed by the law or as otherwise the Commission thinks fit; or (e) make recommendations to the competent authority, proposing amendments or reforms of the laws, regulations or administrative provisions or practices if the Commission has identified such laws, regulations or administrative provisions to have created the difficulties or hardships encountered by the persons who brought the complaints or petitions; and (f) may recommend to the relevant authority the prosecution of any person found to have violated human rights or the taking of any other action and any such authority shall consider the recommendation and take such action as it deems appropriate. | |
5. Appeals |
43 | In deciding an appeal, the independent oversight body has the power to order appropriate remedies for the requester, including the declassification of information. | 1 for partial, 2 for fully | 2 | Partially | 1 | 46. (1) Where the commission finds that a person is entitled to access the information requested, it shall immediately provide the head of the head of the information holder concerned with a report containing - (a) the findings of the review and the determinations made by the Commission; and (b) a direction that notice be given, within the time specified in the report, to the Commission of all actions taken to implement the determinations in the report. (2) Where the Commission finds that the applicant is not entitled to access the information requested, the Commission shall, within seven working days from the date of making the determination, inform the applicant of - (a) the decision in writing stating the reasons thereof; and (b) the right to apply to Court for a review of the determination. (3) The Commission shall give a copy of the decision made under - (a) subsection (1)(a), to the applicant and any third party that made representations to the Commission in the course of the proceedings; and (b) subsection (1)(b), to the head of the information holder concerned. 47. The Commission shall, within thirty working days from the date the determination is made, inform the applicant and any third party of whether the information holder concerned has taken action to comply with the determinations of the Commission. | Only refers to idea of disclosure of the information. |
5. Appeals |
44 | Requesters have the right to lodge a judicial appeal. | 1 for partially, 2 for fully. | 2 | YES | 2 | 49. A person may, after proceedings for review under this Part have been concluded, apply to Court for a review of the decision of the Commission. | |
5. Appeals |
45 | Appeals to the oversight body (where applicable, or to the judiciary if no such body exists) are free of charge and do not require legal assistance. | 1 for free, 1 for no lawyer required. | 2 | YES | 2 | 44. (1) A person who has exhausted the internal review mechanism of the information holder may apply to the Commission for the review of a decision of that information holder. (3) An applicant for review under this Part shall - (a) unless the commission authorizes that it may be made orally, be in writing; and (b) be made not later than two years from the date from which a request for information was received by an information holder. | Fees are not mentioned but some benefit of doubt given, due to the structure of the body. |
5. Appeals |
46 | The grounds for an external appeal are broad (including not only refusals to provide information but also refusals to provide information in the form requested, administrative silence and other breach of timelines, charging excessive fees, etc.). | Score 1 point for appealing refusals, additional points for appealing other violations. | 4 | YES | 4 | 44. (1) A person who has exhausted the internal review mechanism of the information holder may apply to the Commission for the review of a decision of that information holder. (2) The application made pursuant to subsection (1) shall be in respect of the following - (a) the refusal of access by the information holder to the information requested; (b) the payment of fees payable pursuant to section 43 which the applicant considers to be unreasonable; (c) the failure of the information holder to comply with the various timelines stipulated for processing requests for information or decisions on internal review; or (d) any other matter relating to a request for or access to information under this Act. | Generally very broad grounds for appeal, though there seems to be no ability to appeal failures to proactively disclose info. |
5. Appeals |
47 | Clear procedures, including timelines, are in place for dealing with external appeals. | Score 1 point for clear procedures, 1 point for timelines. | 2 | YES | 2 | 44. (1) A person who has exhausted the internal review mechanism of the information holder may apply to the Commission for the review of a decision of that information holder. (2) The application made pursuant to subsection (1) shall be in respect of the following - (a) the refusal of access by the information holder to the information requested; (b) the payment of fees payable pursuant to section 43 which the applicant considers to be unreasonable; (c) the failure of the information holder to comply with the various timelines stipulated for processing requests for information or decisions on internal review; or (d) any other matter relating to a request for or access to information under this Act. (3) An applicant for review under this Part shall - (a) unless the commission authorizes that it may be made orally, be in writing; and (b) be made not later than two years from the date from which a request for information was received by an information holder. (4) A third party who is of the opinion that his interests referred to in sections 35 are likely to be adversely affected by the decision of the information holder to disclose information requested under this Act, may apply to the Commission for a review of that decision. (5) A person who makes any application under this Part shall be given an opportunity to make representations during review proceedings. (6) The Commission shall, within thirty working days from the date of receipt of an application under subsection (1), determine the application and may, within that period, make an inquiry into or investigate the matter which is the subject of the application. | |
5. Appeals |
48 | In the appeal process, the government bears the burden of demonstrating that it did not operate in breach of the rules. | Score Y/N and award 2 points for yes. | 2 | NO | 0 | Not mentioned. | |
5. Appeals |
49 | The external appellate body has the power to impose appropriate structural measures on the public authority (e.g. to conduct more training or to engage in better records management) | 1 for partial, 2 for fully. | 2 | NO | 0 | Not mentioned. | |
6. Sanctions & Protections |
50 | Sanctions may be imposed on those who wilfully act to undermine the right to information, including through the unauthorised destruction of information. | Score 1 point for sanctions for underming right, 1 point for destruction of documents | 2 | YES | 2 | 51.(1) Any person who willfully conceals, destroys, mutilates, falsifies or otherwise alters a document or record containing information which has been requested with intent to prevent disclosure of the information, commits an offence and shall, on conviction be liable to a fine of three million Kwacha (K3, 000,000.00) and imprisonment for a term not exceeding three years. 52. Any person who provides false information maliciously intended to injure another person commits an offence and is liable, on conviction, to a fine of five hundred thousand Kwacha (K500,000.00) and to imprisonment for a term not exceeding two years. 53. Where an information holder wrongfully denies to disclose information either through negligence, recklessness or otherwise under this Act, whether it is in response to a specific request for information or disclosure of information under Part IV, the officer or institution responsible shall be liable to a fine of three million Kwacha (K3,000,000.00). 54. Any person who, having being granted access to information under this Act, uses that information – (a) for unlawful purposes; (b) for reasons other than those for which a request for information was made, without the authority of an information holder; or (c) in such a manner so as to be detrimental to the interests of public officers, information holders or public interest, commits an offence, and shall, on conviction be liable to a fine of three million Kwacha (K3,000,000.00) and imprisonment for three years. | Full points here, due to the scoring rules, though the presence of parallel sanctions for using information for illegal purposes is highly problematic. |
6. Sanctions & Protections |
51 | There is a system for redressing the problem of public authorities which systematically fail to disclose information or underperform (either through imposing sanctions on them or requiring remedial actions of them). | Score 1 point for either remedial action or sanctions, 2 points for both | 2 | NO | 0 | Not mentioned. | |
6. Sanctions & Protections |
52 | The independent oversight body and its staff are granted legal immunity for acts undertaken in good faith in the exercise or performance of any power, duty or function under the RTI Law. Others are granted similar immunity for the good faith release of information pursuant to the RTI Law. | Score 1 for oversight body, 1 for immunity for others | 2 | YES | 2 | 10. Notwithstanding the provisions of any other law, no civil or criminal proceedings shall lie against any staff of the Commission, or any institution to which this Act applies, or a person acting on their behalf, for the disclosure of any information or for any other act done in good faith pursuant to this Act. | |
6. Sanctions & Protections |
53 | There are legal protections against imposing sanctions on those who, in good faith, release information which discloses wrongdoing (i.e. whistleblowers). | Score 2 for strong protections, 1 for moderate protections | 2 | YES | 2 | 50. (1) Any person shall not be penalized in relation to any employment, profession, voluntary work, contract, membership of an organization, the holding of an office or in any other way as a result of having made or attempted to make a disclosure of information which the person obtained in confidence in the course of that activity, if the disclosure is of public interest. (2) for purposes of subsection (1), a disclosure which is made to a law enforcement agency or to an appropriate public entity shall be deemed to be made in the public interest. (3) A person shall make a disclosure under subsection (1) where such person has reasonable belief in the veracity of the information. (4) Disclosure of information under subsection (1) includes information on - (a) violations of the law, including human rights violations; (b) mismanagement of funds; (c) conflict of interest; (d) corruption; (e) abuse of public office; and (f) the risks and threats to public health, safety and the environment. (5) For the purpose of this section, a person is penalized if the person is dismissed, discriminated against, made the subject of reprisal or other form of adverse treatment or is denied any appointment, promotion or advantage that otherwise would have been provided but for this action as a whistleblower. (6) Any term of any settlement arising from a claim under this section, insofar as it purports to impose an obligation of confidentiality on any party to the settlement in respect of information which is accurate and which was or was proposed to be disclosed, shall be unenforceable. (7) In any proceedings for an offence for contravention of any statutory prohibition or restriction on the disclosure of information, it shall be a defence to show that - (a) in the circumstances, the disclosure was in the public interest; and (b) where the offence is alleged to have been committed by a public officer or Government contractor and involves the disclosure of information obtained by the person in his position as such, the defendant had, before making the disclosure, complied with the provisions of subsection (3). | |
7. Promotional Measures |
54 | Public authorities are required to appoint officials (information officers) or units with dedicated responsibilities for ensuring that they comply with their information disclosure obligations. | Score Y/N, Y=2 points | 2 | YES | 2 | 12.(1) Every information holder shall, within twelve months from the commencement of this Act,- (a) designate or appoint one or more of its officers as information officers. | |
7. Promotional Measures |
55 | A central body, such as an information commission(er) or government department, is given overall responsibility for promoting the right to information. | Score Y/N, Y=2 points | 2 | YES | 2 | 8. The Commission, in its oversight functions, have the power to – (a) raise awareness of the right of access to information among members of the public and officials of all information holders; (b) advise Government and other institutions to which this Act applies, on matters related to the coordination and the management of information in the custody or under the control of information holders; (d) make recommendations to Government on the declassification of information which is exempt from disclosure to enable access to that information; (e) make recommendations to Government on matters related to the legal framework on access to information and related legislation; and (g) give directions of a general nature to all institutions to which this Act applies, in connection with the performance of their duties and obligations under this Act. | |
7. Promotional Measures |
56 | Public awareness-raising efforts (e.g. producing a guide for the public or introducing RTI awareness into schools) are required to be undertaken by law. | Score Y/N, Y=2 points | 2 | YES | 2 | 8. The Commission, in its oversight functions, have the power to – (a) raise awareness of the right of access to information among members of the public and officials of all information holders; 9. The Commission shall publish and in forms accessible to the general public, guides whose contents shall include the– (a) objects of this Act; (b) contract details of the Commission; (c) existing obligations of all information holders under this Act, including their proactive disclosure obligations; (d) various methods and means of applying for disclosure of information from an information holder and through the Commission; and (d) the rights of members of the public under this Act and the assistance that is available to the general public from the Commission, especially for purposes of ensuring compliance with this Act. | |
7. Promotional Measures |
57 | A system is in place whereby minimum standards regarding the management of records are set and applied. | Score Y/N, Y=2 points | 2 | Partially | 1 | 13.(1) Every information holder shall ensure that it keeps information or records about its operations, personnel, activities and other relevant or related information or records. (2) Every information holder shall ensure the proper organization and maintenance of all information or record in its custody, in a manner that facilitates access to such information or record in accordance with this Act. (3) Every information holder shall maintain information, for a period of seven years from the date on which the information is generated by the institution or on which the information comes under its custody or control. 55.(1) The Minister may make regulations for the better carrying out of this Act. (2) Without prejudice to the generality of subsection (1), the regulations may prescribe – (d) the measures which information holders shall take to ensure proper keeping of records of information. | Minister may by regulation set measures for proper maintenance of records; would get another point if and when that happened. |
7. Promotional Measures |
58 | Public authorities are required to create and update lists or registers of the documents in their possession, and to make these public. | Score Y/N, Y=2 points | 2 | Partially | 1 | 16. (1) Every information holder shall, within twelve months of commencement of this Act, prepare information manuals which shall be accessible electronically and may be disseminated in tangible form. (2) The information manuals, referred to in subsection (1), shall include the categories of information that an information holder is obliged to disclose under section 15. (3) Every information holder shall update and publish its information manual whenever material changes occur to the information contained therein. | Just proactively disclosed information. |
7. Promotional Measures |
59 | Training programs for officials are required to be put in place. | Score Y/N, Y=2 points | 2 | YES | 2 | 14.(1) Every information holder shall ensure the provision of appropriate training of its staff on the right of persons to access information or records held by the institution as provided in this Act. | |
7. Promotional Measures |
60 | Public authorities are required to report annually on the actions they have taken to implement their disclosure obligations. This includes statistics on requests received and how they were dealt with. | Score Y/N, Y=2 points | 2 | YES | 2 | 17.(1) Every information holder shall, not later than three months after the end of each financial year, submit to the Minister, a report on their level of compliance with the provisions of this Act, during that financial year in the form and manner as may be prescribed. (2) The Minister shall, within three months after receiving the reports in subsection (1), submit an annual report to Parliament covering the general activities of information holder in implementing the provisions of this Act in the year to which the report relates. | |
7. Promotional Measures |
61 | A central body, such as an information commission(er) or government department, has an obligation to present a consolidated report to the legislature on implementation of the law. | Score Y/N, Y=2 points | 2 | YES | 2 | 11. The Commission shall, as soon as practicable, but not more than six months after the expiry of each financial year, submit to the National Assembly, a report concerning its activities during that financial year and the report shall include – (a) the details of all activities undertaken by the Commission and all other information holders to ensure compliance with the provisions of this Act; (b) a review of the status of implementation of this Act in that year; and (c) a general assessment of the efficacy of the right of access to information in Malawi. 17. (1) Every information holder shall, not later than three months after the end of each financial year, submit to the Minister, a report on their level of compliance with the provisions of this Act, during that financial year in the form and manner as may be prescribed. (2) The Minister shall, within three months after receiving the reports in subsection (1), submit an annual report to Parliament covering the general activities of information holder in implementing the provisions of this Act in the year to which the report relates. |
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