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To What Extent Pakistani Citizens are Enjoying the Right of Access to Information? An Exploratory Study

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The purpose of this study was to explore and explain the provision of the right of access to information (RAI), a remarkable development particularly in the field of human rights and information management in Pakistan. This study has two objectives: (1) to track the practice and propensity of public information officers (PIOs) in providing information under the Punjab Transparency and Right to Information Act, 2013; (2) to examine the perceptions of information seekers in retrieving the information under the Punjab Transparency and Right to Information Act, 2013 (PTRIA, 2013). A mixed-method, sequential design with a parallel database variant was used to collect data. This study was divided into two phases; data of both phases were collected sequentially. The survey method was used to collect data in the first phase of this study. The questionnaire was the source of data collection from public information officers (PIOs) (n=315) working in nine divisions of the province of Punjab, Pakistan to understand their practices and preparedness level in providing information under PTRIA, 2013 with 95.5 % (n=301) response rate. Interviews were conducted to collect data for the qualitative phase of the study. The sample size for the qualitative phase was ten citizens of Pakistan who applied for information at least five times under the RAI. The study findings unwrapped a gap between the perceptions of public information officers (PIOs) and the information seekers, as PIOs claimed that all the information is organized well, and they provide the required information on time. However, they inform citizens if there were any logical delays in providing information. Vice Versa, citizens of Pakistan described that information services are not as per their satisfaction level due to the poor record management system, non-cooperative attitude of information providing bodies, unnecessary delays in retrieving required information and culture of secrecy among the government bodies.
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To What Extent Pakistani Citizens are Enjoying the Right of To What Extent Pakistani Citizens are Enjoying the Right of
Access to Information? An Exploratory Study Access to Information? An Exploratory Study
Ammara Yousaf
Institute of Business Administration, University of the Punjab, Lahore, Pakistan
,
ammarayousaf@yahoo.com
Khalid Mahmood
Department of Information Management, University of the Punjab
, khalid.im@pu.edu.pk
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Yousaf, Ammara and Mahmood, Khalid, "To What Extent Pakistani Citizens are Enjoying the Right of
Access to Information? An Exploratory Study" (2020).
Library Philosophy and Practice (e-journal)
. 4565.
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Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
1
To What Extent Pakistani Citizens are Enjoying the
Right of Access to Information?
An Exploratory Study
Ammara Yousaf
Institute of Business Administration, University of the Punjab, Lahore, Pakistan
Email: ammarayousaf@yahoo.com
Khalid Mahmood
Department of Information Management, University of the Punjab, Lahore, Pakistan
Email: khalid.im@pu.edu.pk
Abstract
The purpose of this study was to explore and explain the provision of the right of access
to information (RAI), a remarkable development particularly in the field of human rights and
information management in Pakistan. This study has two objectives: (1) to track the practice
and propensity of public information officers (PIOs) in providing information under the
Punjab Transparency and Right to Information Act, 2013; (2) to examine the perceptions of
information seekers in retrieving the information under the Punjab Transparency and Right to
Information Act, 2013 (PTRIA, 2013). A mixed-method, sequential design with a parallel
database variant was used to collect data. This study was divided into two phases; data of
both phases were collected sequentially. The survey method was used to collect data in the
first phase of this study. The questionnaire was the source of data collection from public
information officers (PIOs) (n=315) working in nine divisions of the province of Punjab,
Pakistan to understand their practices and preparedness level in providing information under
PTRIA, 2013 with 95.5 % (n=301) response rate. Interviews were conducted to collect data
for the qualitative phase of the study. The sample size for the qualitative phase was ten
citizens of Pakistan who applied for information at least five times under the RAI. The study
findings unwrapped a gap between the perceptions of public information officers (PIOs) and
the information seekers, as PIOs claimed that all the information is organized well, and they
provide the required information on time. However, they inform citizens if there were any
logical delays in providing information. Vice Versa, citizens of Pakistan described that
information services are not as per their satisfaction level due to the poor record management
system, non-cooperative attitude of information providing bodies, unnecessary delays in
retrieving required information and culture of secrecy among the government bodies.
Keywords: Freedom of information, Right of access to information, Human and fundamental
right, Information services.
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
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Introduction
Information plays an important role to achieve the goals and objectives of society
(Webster, 2014, 2020). Moreover, information is a vital source of mind mapping, problem
resolving, good decision making, and knowledge updating (Selbst & Powles, 2018; Webster,
2014). It is valued for the development of economic, political, social, and environmental
activities in a society (Behrens, Woolrich, Walton, & Rushworth, 2007; Webster, 2014).
The importance of information in the economic, social, environmental, political development
of a state had been recognized since ancient times. Based on this recognition, the right of the
citizen to access government information was introduced in 1766 in Sweden. This right has
different nomenclature in different states of the world such as “right to information (RTI),
right of access to information (RAI), freedom of information (FOI). It is defined as the right
of citizens of a country to retrieve information from government departments in prescribed
ways (Fung, Graham, & Weil, 2006). Further, it is highlighted that successful information
services under RAI is a method to develop transparency in government organizations,
promote a sense of responsibility in the system, promote accountability, and cause good
governance.
This right is also recognized as a human right and fundamental right as well and
considered as a benchmark of all other human rights. It can be defined as the right of people
to know about public functionaries by accessing all types of information and records kept by
public functionaries. This right was a way that empowered the people of a state to choose the
best government, promoted democracy, accountability, and transparency in government
organizations as well. Therefore, a state without this right promotes a secrecy culture in
organizations that causes corruption and corruption distresses the system of democracy in a
country (Agrawal, 2012; Schedler, 1999; Sridhar & Rao, 2006).
For the practical implementation of this right, there is an extreme need for good
information services provided by the government of a country. Acquiring relevant
information, organization of information, storing it, and processing on demand (retrieval and
dissemination of information) are big pillars in information service especially information
service under the right of citizens to access the information without loss of time. On the other
side, the volume of information and the diverse nature of information has made this task
challenging.
Information services under RAI are defined as: accept the application of request from
citizens of a state, gather requested information, organize the information, and respond to the
queries of the information requesters (Kejriwal, 2006; Mendel, 2015). Moreover, it is
considered that information services under the RAI can be listed as to help the seekers in
writing applications for information, receive and entertain applications (manual/
computerized), deliver accurate information in time, make a list of exempted information
according to the law, inform the seekers if there is a delay with logics, avoid to provide
confidential information, keep the record of information and applications in such a way that
can access easily, and prepare an annual report of the organization (Paul, 2014; Reynolds,
2011; Reynolds & Wyatt, 2011). Thus, grounded on the above literature, information services
under RAI can be listed as receiving requests, management of requests, searching required
information, acquire required information, make ready for delivery, delivery of information
to requesters, and management of delivered information.
Sweden was the first country in the world that acknowledged the right of access to
information (Cuillier & Davis, 2010). Whereas, in 2019, there were one hundred and forty-
five developing and developed countries in the world that recognized this right (Global Right
to Information Rating, 2018, 2019). In Pakistan, the history of acknowledgment of this right
started in 2000 by a promulgation of the Freedom of Information Ordinance (FIO). Whereas
the Provincial Assembly of Baluchistan acknowledged this right in 2005, the Sindh
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
3
Provincial Assembly recognized this right in 2006, the Punjab province and KPK provinces
passed this right in 2013 (Dey, 2015; PILDAT, 2015; Sardar, 2014).
All five Acts on “right of access to information” in Pakistan defined that for successful
provision of the “right of access to information” there is an extreme need to provide a good
information service by designated, trained, and expert information professionals and monitor
their information services. Moreover, these Acts elaborated that PIOs are supposed to provide
information in time and accurately. Where it is important to offer citizens the right of access
to information (RAI), at the same time it is important to ensure the information service
quality under the RAI. User's perceptions about products, services, and experiences value a
lot (Oliver, 1980). Therefore, evaluations of user’s perceptions about information services is
a useful measure to understand the actual nature and extent of information service (Bali,
2018). Information service is divided into four units: (1) information providing services, (2)
information retrieving services, (3) information individual services, and (4) information
organization services.
Literature reports that information seekers want information relevant, and quickly (Hu,
Hu, & Yan, 2014). Similarly, Pitt, Watson, and Kavan (1995) concluded that the seekers of
information are expected to deliver the information quickly and effectively. Users are not
concerned about the organization of information service rather they are concerned about
information accessibility, usefulness, and reliability. Bali (2018) found that Iraqi media
persons were not satisfied under the right of access to information. Similarly, previous
researches highlighted that user of the right of access to information perceived this right has
acknowledged but practically to avail information services under this right is hectic work,
wastage of time due to poor record management system, non-cooperative attitude, excessive
delay, untrained staff, and irrelevant information delivered (Adeleke, 2011; Chaudhary, 2016;
Dhawan, 2014; Grunewald, 1987; Hashmi, 2014; Kejriwal, 2006; Leaver, 2012; Maciag,
2011; Martinez, 2014; Naeem, 2018).
It may be concluded that to make accountable and transparent government activities,
acknowledgment, and the successful implementation of RAI are very important. Whereas, a
successful implementation is based on good information services offered by designated
information officers to the public/citizens. Consequently, it is very important to explore the
nature of information services under this right to examine the real status of RAI
implementation in a state.
Despite the importance of the topic, the researchers could not find a single study
exploring or explaining the nature and extent of information services under this right in the
Pakistani context. Therefore, this study was designed to investigate the nature of information
services provided by information professionals and to explore the perception of citizens about
the information services offered to them under the right of access to information in Pakistan.
Research Objectives
1. To explore the nature and extent of information services offered to citizens of Pakistan by
information professionals designated in nine divisions of Punjab, Pakistan under the right of
access to information (RAI).
2. To investigate the perceptions of citizens of Pakistan about offered information services by
the government of Pakistan under the right of access to information (RAI).
Methodology
To answer the research objectives of this study a mixed methods research (MMR)
approach was used. MMR design is defined as collecting and analyzing both kinds of data
(Quantitative and Qualitative) which also involves the use of both methods in tandem. The
logic behind mixing both types of designs were: (1) the qualitative or quantitative methods
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
4
alone was insufficient to dig out in-depth information on the topic such as issues of citizens in
retrieving information under the right of access to information (RAI), and (2) combining both
methods provide a complete picture of information service under RAI.
Moreover, there were listed four topologies of mixed methods as (a) purpose-based
design such as “triangulation”, (b) time-based design such as “sequential”, (c) relative
priority such as ‘qualitatively driven”, and (d) level of interaction such as “fully integrated”
(Creswell & Clark, 2018). Time-based topology named sequential was used in this study.
This typology is further divided into two variants: (1) exploratory, and (2) explanatory. In this
research work second, variant named “explanatory mixed method” was used (see Table 1).
This variant is defined as sequential started with quantitative data collection and analysis
followed by qualitative data collection and analysis (Creswell & Clark, 2018).
Table 1. Detail of Mixed Methods Used in the Study
Methods
Detail of Mixed Methods
Design Type
Sequential design
Variant
Explanatory
Timing
Sequential: Quantitative first followed by qualitative
Weighting and Notation
Equal (QUAN + QUAL)
Merge Strategy
Summarized and interpretation of QUAN and then QUAL and
discussed how the qualitative result helped to explain the
quantitative result (Creswell & Clark, 2011, p.84).
The Primary Point of the
Interface of Mixing
Contacting the two strands from quantitative to qualitative
(Creswell & Clark, 2011, p.75).
Paradigm
Postpositivist in phase one, constructivist in phase two
Level of Interaction
Interactive
Design Purpose
Need a more complete understanding about nature of
information services offered to Pakistani citizens under right of
access to information by explaining quantitative result with
qualitative
Research Strategy
Sequential explanatory mixed methods are used in this study. A detail of mixed
methods, sequential strategy of both phases with product and procedure can be seen in Table
2.
Target Population, Sample, and Instruments
Quantitative Phase
The population of the quantitative phase was all information professionals designated in
nine divisions (Lahore, Rawalpindi, Multan, Bahawalpur, Dera Gazi Khan, Gujranwala,
Sahiwal, Sargodha, and Faisalabad) of Punjab. These information professionals were
designated by the government of Punjab under the Right of Information Act, 2013, and
named as public information officers (PIOs). The designation of PIOs aimed to provide all
types of government information to citizens of Pakistan on demand. A total of 1794 (Punjab
Information Commission, 2018) PIOs were designated until January 2020. Following the
Krejcie and Morgan (1970) sample size determination with the confidence interval 5% and
confidence level 95%, the sample size of this research work was 315 and 95.5% was the
response rate. Further, in this research work, a stratified sampling technique was used and
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
5
each division considered a stratum. Therefore, 315 was divided by 9 divisions and n=35 was
the sample size of each division of Punjab (see Table 2). The questionnaire was distributed to
the PIOs through WhatsApp group. The self-selected procedure was adopted to select 35
PIOs from each division.
The survey method was used to conduct the quantitative phase and a self-completed
structured questionnaire was the source of collected data. The survey questionnaire was
developed using an extensive review of available literature, expert review, and pilot testing.
The drafted questionnaire was submitted to six experts from Rawalpindi, Lahore, and
Bahawalpur divisions of Punjab. The drafted questionnaire was revised many times to make
it imperative. After being revised and approved by experts, the questionnaire was tested in a
pilot study through 50 information officers. The respondents for the pilot study were
approached through email and in-person meetings. The reliability statistic for the construct
‘information provision practices’ was measured through the value of Cronbach’s alpha that
was .870 and is considered good (Hendrickson, Massey, & Cronan, 1993; James, Demaree, &
Wolf, 1984; Pallant, 2013).
Table 2. Research Strategy
Phase
Procedure
Quantitative Data
Collection
Stratified Sampling
Survey Method
Quantitative Data
Analysis
Data Screening
SPSS QUAN. Software v. 21
Qualitative Phase
Case Selection
Interview Protocol
Development
Purposefully selection of ten
citizens
Qualitative Data
Collection
Individual in-depth telephonic
interviews with 10 citizens of
Pakistan.
Qualitative Data
Analysis
Coding themes and analysis
Integration of
QUAN and
QUALResults
Interpretation and explanation
Qualitative Phase
The unit of analysis was citizens of Pakistan who seek information from the Punjab
Information Commission office under the RAI. There were N= 1430 citizens who applied for
information and there were 229 citizens who applied for information to PIC more than five
times. Through convenience sampling, fifteen seekers from the Lahore division were
approached and ten of them agreed to the interview. An interview protocol was developed to
gain detailed information about the topic. The interview protocol was based on quantitative
results to elaborate and explore the quantitative results. Therefore, three main questions were
asked, (1) perception of information services provided to them, (2) perception on the
organization of information, and (3) services status of information requests and information
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
6
retrieved. The interview protocol was tested from three participants from those who
participate in the quantitative phase. They advised slight changes related to their syntax. As a
result, the questions of the interview were revised slightly.
Results
For demographic information, respondents were asked about training status, divisions
in which the respondent was serving, experience as PIO, service scale, and the number of
staff for the Right of Access to Information Activities (see Table 3).
Table 3. Demographic Information (n= 301)
Demographic Title Status
Frequency
Percent
Training status
No
93
31
Yes
208
69
Divisions
Bahawalpur
34
11
Dera Gazi Khan
34
11
Faisalabad
30
10
Gujranwala
34
11
Lahore
35
12
Multan
34
11
Rawalpindi
35
12
Sahiwal
32
11
Sargodha
33
11
Experience as PIO
1 year
101
34
2 years
100
33
3 years
66
22
4 years
32
11
5 years
2
.7
Scale
BPS 16
16
4
BPS 17
180
60
BPS 18
73
24
BPS 19 or above
37
12
Numbers of staff for
right of access
to information activities
1
220
70
2
52
17
3
16
5
4
11
4
7
2
.7
Table 3 reveals that respondents belonged to all divisions (9) of the Punjab province,
with variation in a few numbers (n=30, 10% - n=35, 12%). Most of the respondents (n=208,
69%) had received training relevant to the right of access to information. However, some
respondents (n-93, 31%) were found to be serving without training about the Right of access
to information. Moreover, about the experience, a majority of the respondents (n= 101, 34%)
had one year of experience, and n= 100 (33%) had two years of experience as public
information officer. This shows the sincere effort of the authority to implement the Right of
Access to Information Act in the last two years. Furthermore, there were only two
respondents (.7%) who had five years of working experience as PIO. A large number of
respondents (n=180, 60%) serving as PIOs had a pay-scale of BPS 17. Some respondents
(n=16, 4%) were also serving at BPS 16. A considerable number of respondents (n= 37, 12%)
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
7
were found to be working at BPS 19 or above, which is very encouraging. Moreover, the
number of members of staff for performing activities regarding RATI Act was as follows:
some respondents (n=2, .7%) state that the number of staff members serving as PIOs are
seven whiles, a large number of respondents (n= 220, 70%) say that there is only one
designated PIO in public functionary.
Table 4. Serving Departments: Name and Frequency
Sr.
No
Department Name
Frequency
Percent
1.
Government Department
37
12
2.
Education
35
12
3.
Health Department
22
7
4.
Agriculture Department
18
6
5.
Social Welfare
15
5
6.
Judiciary / Labor Court
13
4
7.
Police Department
13
4
8.
Board, Commission, Council
12
4
9.
DC Office
11
4
10.
Zakat & Usher
11
4
11.
Local Government
9
3
12.
Planning & Development
8
3
13.
Environment
7
2
14.
Finance
7
2
15.
Punjab Forest Department
7
2
16.
Autonomous Body
6
2
17.
Bureau of Statistics
6
2
18.
Irrigation Department
6
2
19.
S&GAD
6
2
20.
Anti-Corruption
5
2
21.
Revenue
5
2
22.
Sports
4
1
23.
Administrator Zila Council
3
1
24.
Cantonment Board
3
1
25.
Corporation
3
1
26.
Punjab Assembly
3
1
27.
Social Security
3
1
28.
Account Office
2
.7
29.
Cholistan Development Authority
2
.7
30.
Civil Servant
2
.7
31.
Home Department
2
.7
32.
Labor Department
2
.7
33.
Municipal Committee
2
.7
34.
Ombudsman Punjab
2
.7
35.
PHA Bahawalpur
2
.7
36.
Population Welfare
2
.7
37.
Semi Government
2
.7
38.
Water Management
2
.7
39.
Punjab Employee Social Security
1
.3
As shown in Table 4, there are 39 departments from where data is collected. A
majority of responses were from government (n=37, 12%) and education departments (n=35,
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
8
12%). On the other hand, the minimum number was reported from the Punjab Employee
Social Security Department (n=1, .7%).
Table 5. Information Services Practices by PIOs (n=301)
Rank
Items
Mean
Std.
Deviation
1.
Do you verify the information before delivering it to the
seeker?
3.42
.878
2.
Do you help (if needed) the seeker in writing an application?
3.41
.814
3.
Does your department keep the record in such a way that it can
be accessed easily whenever it required?
3.06
.979
4.
Do you inform the seeker if there is any delay?
3.03
.990
5.
Do you inform the seeker of the reason for the refusal of
application?
2.97
1.097
6.
Do you maintain the record of applications?
2.92
.998
7.
Do you inform the seeker if the application is refused?
2.81
1.159
8.
Do you contribute to preparing an annual report?
2.81
1.074
9.
Does your department make an effort for proactive disclosure?
2.78
1.002
10.
Do citizens use the standard format of application for seeking
the required information?
2.71
1.062
11.
Have you listed the exempted information?
2.71
1.122
12.
Does your department promote RTI?
2.65
1.017
13.
Do you provide the required information to the seeker within
time?
2.51
1.168
14.
Does the department use any software for processing RAI
application
2.49
1.196
15.
Do you supply confidential information?
2.27
1.179
16.
Does the department publish all relevant facts about important
policies and decisions that affect citizens?
1.94
1.086
17.
Do you use different sources of the internet for the process of
retrieving application and delivering information to seekers?
1.75
.984
Scale: 1 = strongly disagree, 2 = disagree, 3 = neutral, 4 = agree, and 5 = strongly agree.
Data in Table 5 reveals the response against the 17 statements regarding the
information services practices by PIOS (n=301). Table 5 revealed that PIOs moderately
agreed that it is standard practice to verify the required information before delivering it to the
seeker (M = 3.42) and that they help the seekers, if needed in writing an application for
seeking information under PTRIA, 2013 (M = 3.41). Similarly, these two practices of PIOs
have been defined as high priority exercise of PIO (Department of Child Protection and
Family Support, 2015; Nursing and Midwifery Council, 2016; Srivastava, 2010). On the
other hand, PIOs were found to disagree about using different internet sources (social media
and email) in the process of retrieving applications and delivering information to the seekers
(M = 1.75). On the other hand, in the study of Darbishire, Carson, and Humphreys (2006), it
has been highlighted that receiving an application from applicants and delivery of
information under the RAI Act by using different sources of the internet was very important,
as it reduced costs and saved time. Furthermore, PIOs found that their departments did not
publish all relevant facts about important policies and decisions that affect citizens (N =
1.94). Whereas, the Punjab Transparency and Right to Information Act, 2013 stated that all
relevant facts about important policies and decisions that affect citizens should be published
under proactive disclosure.
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
9
Moreover, it is claimed in previous literature, that the total number of applications
received for information under RAIA showed the level of success of this Act, as the total
response rate is a useful way to check the success level of PIOs practice (Agrawal, 2012;
Awasthi & Kataria, 2000; Pande & Singh, 2014; Reynold, 2011; Salaria, 2014). Therefore, to
know the numbers of applications received and entertained by the PIOs under the Punjab
Transparency and Right to Information Act, 2013, the respondents (n=301) were asked open-
ended questions: (a) how many applications did you receive up till now? and (b) how many
applications have you entertained up till now? Based on the responses, both questions have
been divided into seven categories (see Table 4.2).
As shown in Table 6, a large number (n=177, 59%) of the 301 respondents fall in the
first category, who received 1-5 applications from seekers. While, a few PIOs (n=14, 4%)
received applications ranging from 101-250. Only one PIO (n=1, .7%) received 421
applications from different seekers. Although the percentile of the number of applications is
low (.7), it is still encouraging that the citizens of Pakistan are aware of their right of access
to information and are willing to seek information under PTRIA, 2013.
Table 6. Frequency: Number of Applications Received & Entertained (n=301)
Statement
Category
Frequency
Percent
Number of applications
received
1-5
177
59
21-50
38
13
6-10
28
9
11-20
27
9
51-100
16
5
101-250
14
4
421
1
.7
Number of applications
entertained
0
2
1
1-5
196
65
6-20
43
14
21-50
31
10
51-100
18
6
101-250
10
3
400
1
1
Table 6 revealed that a very small number of PIOs (n=2, 1%) were found who did not
deliver the required information to the seekers till then. Nevertheless, (most PIOs) n=196,
(65%) out of the 301 respondents, fall in the second category, who entertained 1-5
applications till then. These findings are very encouraging, as they showcase the willingness
and punctuality of PIOs in providing information under PTRIA, 2013. One respondent (1%)
of 301 claimed that his department had entertained 400 applications of different seekers till
then.
To study the practice of PIOs in providing information under PTRIA, respondents were asked
different questions relevant to practice like the time frame of providing information,
accepting channels, the form of responding seekers’ requests, and ways of handling frivolous
applications (see Table 7).
As shown in Table 7, the time frame of providing information has been divided into six
categories. The majority of respondents (n=140, 47%) specified that they have provided the
required information to the seeker within 7 to 14 days, which is impressive as different
researchers from the world recommended 20 days’ time frame for the response of an
application (Banisar, 2006; Birkinshaw, 2010; Darbishire, Carson & Humphreys, 2006;
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
10
Freedom of Information Ordinance, 2002; Mendel, 2008; Organization of American States,
2010; Simi, 2010).
Table 7. PIOs Practice in Providing Information (n=301)
Statement Categories
Frequency
Percent
Time frame to entertain the
application
7 - 14 days
140
47
14 - 21 days
105
34
14 - 28 days
14
5
14 - 40 days
8
3
Depends upon application
type
20
6
Depends upon the volume
of information required
14
5
Accepted channel for receiving
requests from seekers
By hand, by Mail
32
10
By hand
209
70
By hand, by Email
26
9
By hand, by Email, by
Mail
25
8
By hand, Email, Mail,
Social Media
9
3
Form of responding to seekers’
request
Print
262
87
Print & Soft form
39
13
Channels used for sharing
information in soft form
None/Nil
262
87
Email
22
7
CD, USB
9
3
Mobile (Whatsapp, text
message), social media
(Facebook)
8
3
How do you handle frivolous
applications
Reject the application
94
31
Guide the seekers
181
60
Entertain the application
26
9
Moreover, Table 7 showed the responsible nature of designated public information
officers toward their duty of entertaining the seekers. A small number of PIOs (n=8, 3%)
stated that they delivered information within 14- 40 working days. Some PIOs (n=20, 6%)
claimed that the time frame for providing information to seekers depended on the type of
application, while others (n=14, 5%) said that it depended on the volume of information
required by the seekers.
To know the practice of receiving an application from the seekers, a question was asked
with four options: (a) by hand, (b) through the mail, (c) through email, and (d) through social
media. A large number of respondents (n= 209, 70%) claimed that they accepted the
application from seekers by hand, whereas a small number of respondents (n=9, 3%) were
receiving applications from seekers through all four sources. Furthermore, the practice of
delivering information to seekers has been divided into two categories; namely, print and
print with soft copy. Most respondents (n=262, 87%) specified that they provided the
required information to the seeker in print form, which is very critical, as it showed the
extreme need for electronic implementation in the process of seeking and delivering the
information under the right of access to information which is the recommended model by the
most researchers (Taylor, Lips & Organ, 2006; Vivak Bhatnagar, 2016). Some PIOs (n=39,
13%) claimed that they delivered information in both hard and soft forms. Moreover, to find
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
11
`out about the kinds of soft mediums of delivering information, respondents were questioned
regarding the channels they used for sharing information in the soft form, to which a majority
(n=22, 7%) responded stated that they did so through email (see Table 7).
To study the practice of PIOs in dealing with erroneous applications from seekers, a
question was asked with three options: (a) to reject the application, (b) to guide the seekers,
and (c) to entertain the application. The majority of respondents (n= 181, 60%) claimed that
in such cases, they guide seekers. This was positively reflecting the dutiful nature of PIOs
(see Table 4.3).
Table 8 shows twenty-eight types of information required by seekers under the Right of
Access to Information Act.
Table 8. Type of Information Demanded by Seekers (n= 301)
Sr. No
Type of Information
Frequency
Percent
1.
Budget/Account, pays allowances of officers.
115
38
2.
Inquiry, complains, or case details
22
7
3.
Appointment matters like criteria/ rules, merit list of
recruitment, vacancies, position
20
7
4.
Departmental proceedings
20
7
5.
Personal issues to satisfy grudges
16
5
6.
Service matters & promotion of staff
14
5
7.
Admission
10
3
8.
NGO record decision, an order of application, the
registration process of NGO
10
3
9.
Educational (EDO) like school activities, teacher
vacancy, and duties
9
3
10.
Expenditure, use of vehicles, fuel
8
3
11.
Data regarding the progress report
6
2
12.
Details of disbursement of zakat funds
6
2
13.
Public related
6
2
14.
Health facilities
6
2
15.
Maintenance of places, recovery of dangerous
building/places
4
1
16.
Procurement Plans, Tender detail
4
1
17.
FIR copy, report copy, FIR detail proceeding
3
1
18.
Public welfare
3
1
19.
Security issue
3
1
20.
Agricultural loan detail and recovery of loan process
2
1
21.
Child labor, agreements between labor
2
1
22.
Data relating to crime, inquiry decisions
2
1
23.
Development projects detail
2
1
24.
Formal agricultural land water distribution details,
water supply system detail, lazier land detail, Budget,
Tender
2
1
25.
Information regarding property ownership and
notifications
2
1
26.
Recruitment purchase audit
2
1
27.
Minutes and report of different committees
1
.3
28.
Livestock details
1
.3
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
12
As shown in Table 8, most seekers (n=115, 38%) sought out information regarding
the budget and inquiries, and complaints or case details (n=22, 7%). Respondents claimed
that they had received the smallest number of applications on agricultural loan detail and
recovery of loan process (n=2, 1%), child labor, agreements between labor (n=2, 1%), data
relating to crime, inquiry decisions (n=2, 1%), development projects, transfer data (n=2, 1%),
formal agricultural land water distribution details, water supply system details, lazier land
detail, tender (n=2, 1%), information regarding property ownership and notifications(n=2,
1%), recruitment/ purchase audit (n=2, 1%), and minutes of different committees, reports of
standing committee audit (n=1, 1%), livestock details (n=2, 1%).
Table 9 shows the sixteen consulting authorities by respondents while furnishing
doubtful information or information fall under the exemption.
Table 9. Authorities for Consultation to Furnish Doubtful Information (n= 301)
Authorities for consultation
Frequency
Percent
Colleagues
77
25
Custodian of information
38
13
None/Nil/ No need to consult
37
12
Boss/Head of department
29
10
Seniors
29
10
Concerned staff member
24
8
Secretary
16
5
Administrator
13
4
Chief executive of department (DHA, Health)
12
4
Head office
6
2
Record Manager
6
2
Punjab information commission
5
2
Head Quarter
3
1
P.A
2
1
Regional director
2
1
Registrar
2
1
Most respondents (n=77, 25%) stated that they preferred to consult colleagues
whenever they have to furnish applications demanding: (a) doubtful information, or (b)
exempted information. On the other hand, a minimal number of respondents (n=2, 1%)
claimed that they prefer to consult their P.A, Regional director (n=2, 1%), and registrar (n=2,
1%). However, a considerable number of respondents (n=37, 12%) reported that they
handled doubtful applications and applications that required exempted information, without
any consultation (see Table 9).
Qualitative Phase
Based on the quantitative phase, qualitative data about three main themes were
collected. The themes were: (1) perceptions of information services provided to them, (2)
status of information requests and information retrieved, and (3) and the perception of the
organization of information services.
Perceptions of Information Services Provided to Citizens
In the majority of the transcription, interviewees said that: They are not satisfied with
the information services provided by the designated PIOs to them. For example, the
interviewee 1, 5, 7 highlighted that information services are not good due to the poor record
management system. They suggested that there must be proper information record
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
13
management in all public functionaries for smooth information delivery under RAI. One
interviewee highlighted that due to the non-cooperative attitude of information providing
bodies information services are not admirable. Further, a respondent stated that information
services are not appreciable due to unnecessary delays in retrieving required information
and thought that it may be due to a culture of secrecy among the government bodies.
One interviewee highlighted that I have applied many times for information under RAI
but did not receive proper, relevant, and accurate information from the PIOs…this illustrated
poor information services of PIOs and highlighted the extreme need to improve the
information services. Another respondent said information services are not up to mark due to
lack of monitoring the information system and secondly, designated public information
officers did not verify the relevancy of the information before delivering to the citizens. These
two aspects need to improve by designated trained staff.
The remaining interviewees specified that information services are not good due to
improper infrastructure in the delivery of information, colonial nature of information
providing bodies, secrecy culture, information services can be avail after frequent visits to
the concerned person, designated public information officers did not inform the citizens if
there is a delay in response against the application, citizens did not receive information in
time. Further, they suggested that information services can be improved by:
a) follow the clause of proactive disclosure,
b) designation of trained staff,
c) use of computer technologies,
d) change colonial nature among staff, and
e) abolish secrecy culture.
The number of Information Requested and Retrieved Information. As shown in Table
10, the number of requested information ranged from 7-200.
Whereas, the number of received information ranged from 1- 85 only. This response
rate was only 26.56% of the total requested (320) applications. This showed the non-
professional practice in providing information services by the information officers.
Perception of Organization of Information Services. This theme was further divided into
three sub-themes and defined as: (1) Organization of request and delivery of information:
time frame, (2) sources of receiving responses against information requests, and (3) sources
of retrieved of information and organization.
Organization of Request and Delivery of Information: Time Frame. About the time frame
of delivery of information, all interviewees stated that: Although providing information on
request within a defined time frame (14 days) is essential to make the “right of access to
information” effective yet time frame did not follow. One interviewee said that he did not
receive information on his majority of information applications even the first application was
applied six months ago.
One interviewee stated that I applied 200 applications for information to avail my
“right of access to information” as a citizen of Pakistan but only 55 applications were
entertained its only 27.5% response rate. Whereas, although remaining applications were
applied before three months to one year ago yet did not receive any response from the
information officers. I think it’s due to the colonial nature of public officers and secrecy
culture in government organizations. A respondent highlighted that he applied 23 times to
seek information and received only 6 times (26.1%) responses and the remaining were still
pending. This poor percentage of non-delivery of information showed that PIOs did not
follow the time frame of fourteen days.
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
14
Table 10. Status of Applications: Applied and Entertained
Sr. No
No of application
applied
No of applications retrieved
information
Percent
1.
07
03
42.9%
2.
09
02
22.2%
3.
17
04
23.5%
4.
13
03
23%
5.
16
05
31.3%
6.
20
02
10%
7.
09
04
44.5
8.
200
55
27.5
9.
06
01
16.6
10.
23
06
26.1%
Total
320
85
26.56%
The fourth interviewee said that the time frame is not followed due to the secrecy
culture in public organizations. To obtain the information I applied 13 times whereas received
only three times and waiting for a response from PIOs on my remaining ten requests. Three
interviewees (5, 8, and 9) stated that the time frame is not followed, and its due to (1)
designated public information officers used delaying tactics, poor record management,
secrecy culture in government organizations, and ignoring the rules of record keeping. The
number six interviewee highlighted that although a time frame of fourteen days for delivery
of information was followed yet received information was not relevant, improper organized,
or uncomplete, and remaining applications are still pending. Further, some organizations
designated information officers for the delivery of information but they did not take serious
steps to provide information in time and accurately.
Sources of Receiving Responses Against Information Requests. This question has five
options: (1) hard form, (2) by email, (3) by mail, and (4) through social media. Interviewees
(n= 5) stated that designated information professionals received information requests by hand
only. Remaining stated that PIOs received the application for information under RAI by hand
and through mail also (n=1), hand and email (n=2), hand, mail, and even through email
(n=1), hand, email, and even through social media (n=1), and hand, email, and through
WhatsApp (n=2).
Form of Information Retrieved. About the form of information received by the citizens, the
researcher further divided into two options: (1) print form, (2) electronic form (email, USB,
Mobile (WhatsApp), and social media). Four interviewees stated that they retrieved
information in print form only. The remaining stated that they received information in (1)
print form and soft form in USB by two interviewees, (2) soft form through email by one
respondent, (3) soft form through WhatsApp by one respondent, (4) soft form by using social
media and in USB by two respondents, (5) received information in the soft form in USB and
print form as well.
Integration of Findings
This sequential mixed-methods study focused on the nature of information services
offered to citizens of Pakistan under the “right of access to information”. For a richer
understanding of the topic, both stakeholders (information providers and the public as
seekers) were targeted samples for the study. Quantitative data were collected from
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
15
information providers named as public information officers (PIOs) and qualitative data
collected from citizens who requested information under RAI. Both phases were weighing on
an equal base to develop a complete picture of the topic. The findings of this study were
divided into three parts that emphasized its value.
Information Services Provided
In the quantitative phase, 17 statements were asked from the PIOs and found that the
majority of them highlighted that it’s their regular practice to verify the required information
before delivering to the seeker, they help the seekers (if needed) in writing an application for
seeking information under RAI, their department has managed the record in a way that can be
easily accessible, and they have a practice of informing the seekers if there were some delay
in providing information. On the other side in the qualitative phase, it has found that citizens
of Pakistan as a seeker of the information under RAI were not satisfied with the information
services of PIOs and most of them stated that information services were unsatisfactory, not
up to the mark, and need to improve due to underprivileged management of information, a
non-cooperative attitude of information providers, unnecessary delay in retrieving required
information, lack of monitoring the system, PIOs did not verify the relevancy of the
information before delivering to the public, the designation of untrained information
providers, an inappropriate system of delivery of information, colonial nature of information
providers, irrelevant information received, information services can be avail after a frequent
visit to the concerned person, and information officers did not inform the public if there is a
delay in response against the application.
Both types (information providers and seekers) of respondents highlighted that there
was extreme need of: (1) utilizing of information communication technologies in the
information providing services and in information organization services as well, (2) regular
annual reports about information services must be published by the government bodies, (3)
there must be proactive disclosure of information that relevant to citizens of Pakistan under
the law, (4) list down the exempted information in detail to avoid any ambiguities in
information providing service, and (5) there was an extreme need to publish all relevant facts,
important policies, and decisions of government organizations on its website.
Status of Applications of Information
In the quantitative phase, a large number of information officers stated that they
received applications from seekers ranged from 1-5. Whereas some were received
information requests ranged in one hundred one to two hundred and fifty, and one PIO (n=1,
.7%) claimed to receive four hundred and twenty-one requests of information from different
requesters of the country. Whereas, about the delivery of information, only 1% of the
respondents found who did not deliver the required information. further, most of the PIOs
entertained 1-5 applications. One respondent highlighted that his department has entertained
four hundred requests of information from different seekers. Vice versa, in the qualitative
phase, all (n=10) interviewees applied 320 total applications for information and retrieved
only 85 (26.56%) information from the PIOs.
Practice in Dealing with a Request for Providing Information Services
In the quantitative phase, about the practice of receiving the application, a large number
of PIOs stated that they accepted applications from seekers by hand, whereas a small number
of respondents were found practicing receiving an application through all four sources (by
hand, through email, by mail, and through social media). Similarly, in the qualitative phase,
five out of ten interviewees stated that PIOs received the application for information by hand
only.
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
16
About the time frame for a reply to an information request, in the quantitative phase
majority of respondents, stated that they provided the information to the requester within
seven to fourteen days. A small number of PIO specified that they delivered information
within fourteen to forty days. Some PIOs claimed that they did not specify the time frame for
providing information to the information requester as it depended on the type of information
required. Whereas some PIOs said that time duration depended on the volume of the required
information. Vice versa, seekers of RAI stated that they did not receive information in a set
time frame of fourteen days from PIOs.
On account of the form of information provided to seekers, most of the respondents in
the quantitative phase respondents agreed that they provided the required information in print
form only. Some PIO claimed that they delivered information in print & soft form as well.
Similarly, it has found in the qualitative phase that four interviewees gained information in
print form. Remaining retrieved information in the soft form in a C.D, in USB, through email,
and by social media.
Discussion and conclusion
The “right of access to information” is valued for citizens of a state. For the successful
implementation of this right, good information services are valued a lot. On the bases of the
results, it can be discussed that:
Information officers claimed that they provided information after inspection about the
relevancy, authenticity, and reliability of the information. All the information is organized
well and it’s their practice to help the seekers (if needed) in writing an application for an
information request. They inform the citizen if there were any logical delays in providing
information. Similarly, these steps of information service defined as high significance for the
successful implementation of RAI (Department of Child Protection and Family Support,
2015; Nursing and Midwifery Council, 2016; Srivastava, 2010). Vice Versa, citizens of
Pakistan described that information services are not good due to the poor record management
system, non-cooperative attitude of information providing bodies, unnecessary delays in
retrieving required information, and culture of secrecy among the government bodies.
Moreover, the results of both phases highlighted that there was no use of internet sources
(Social media and email) in the process of receiving information requests and delivering
information to citizens. Whereas, it was highlighted that the use of different internet sources
found very important in receiving requests of information and delivery of information as it
reduced cost and save time (Darbishire, Carson, & Humphreys, 2006).
It has been highlighted in previous studies that total applications of request for
information under RAI presented the awareness level about this right among citizens of a
state and reply rate was a method to check the success level of information service provided
by PIOs (Agrawal, 2012; Awasthi, & Kataria, 2000; Pande, & Singh, 2014; Reynold, 2011;
Salaria, 2014). This research work found that the range of applications of information
received by information professionals was significant. Whereas respond on it was not
admirable as narrated by citizens of Pakistan.
Information officers stated that they provided the required information in a period
ranged 7- 40 days but the majority of citizens of Pakistan narrated that they did not receive
information against their request even after 3-6 months. However, in previous researches, it
has recommended twenty days to reply to an information request under RAI (Banisar, 2006;
Birkinshaw, 2010; Darbishire, Carson, & Humphreys, 2006; Freedom of Information
Ordinance, 2002; Mendel, 2008; Organization of American States, 2010; Simi, Sharma, &
Cheriyan, 2010). Therefore, this result endorsed the failure of information services under
RAI.
Yousaf & Mahmood To What Extent Pakistani Citizens are Enjoying
17
The majority of both types of respondents highlighted that source of receiving an
information request and delivery of information was manual (by hand in print form). While
only a few from both respondents stated that electronic sources like email, social media,
transferred data through USB, CDs were also used. This result was very critical, and it
necessitated the electronic implementation in the process of seeking and delivering
information under RAI. Similarly, studies of Taylor, Lips, and Organ, 2006; Vivak, 2016
recommended electronic implementation in information services under RAI.
Therefore, it can be concluded that information services under the “right of access to
information” are at the developing stage. The Citizens of Pakistan were facing many
challenges in retrieving the required information. Furthermore, despite the confidence of
public information officers, the citizens were not satisfied with the available information
services.
Implications and Recommendations
The study suggests several practical implications, for example, the government of
Pakistan should take strong steps in making good information services under RAI. For the
said purpose trained and experienced persons should appoint as an information provider or
training should be offered to the existing PIOs. For a proper check and balance, a complete
report of information services should be published yearly by the concerned departments.
Furthermore, serious steps should be taken to use information communication technologies in
delivering and disseminating the information under RAI. The government should try to
abolish the rigid approach; the colonial mindset of public functionaries. Serious steps should
be taken to remove the secrecy culture in a public organization.
There should be a constitutional guarantee of (a) there is no denial in the delivery of
information from public functionaries and (b) citizens of Pakistan obtain the relevant
information within the time frame and in the appropriate format. It is recommended that the
public department should receive an online application under the “right of access to
information”. The web page should be designed in a user-friendly way. Since the librarians
are expert information service providers, therefore, it is suggested that the government of
Punjab, Pakistan should engage professional librarians for the purpose.
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