AfghanistanPublicPolicyResearchOrganization

Afghanistan’sAccesstoInformationLaw:APreliminaryReview

October2015

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AcknowledgementsThisassessmentwascommissionedbyIntegrityWatchAfghanistan(IWA)andcarriedoutbyAfghanistanPublicPolicyResearchOrganization(APPRO).APPROwishestothankSayedIkramAfzali,TimothyGrayMichaelKaranicolas,HabibMuqbelandEzatullahAdib,andotherreviewersforcommentingonearlierdraftsofthisreport.APPROandIWAwishtothankDeAfghanistanBreshnaShirkatemployees,hospitalemployees,membersofthepublicandpatientsforparticipatinginthisresearchandsharingtheirexperiencesandviewswithAPPROresearchers.AbouttheResearchersTheresearchteamconsistedof(inalphabeticalorder):NafasGulKarimi,SabirKhyber,SaeedParto,ZahraQasemi,BaryalaiQayoumi,EhsanSaadat,ZarghonaSaifi,andKhalidSiddiqi,ThisreportwasauthoredbySaeedParto,EhsanSaadat,andKhalidSiddiqiAboutAPPROAfghanistanPublicPolicyResearchOrganization(APPRO)isanindependentsocialresearchorganizationpromotingsocialandpolicylearningtobenefitdevelopmentandreconstructioneffortsinAfghanistan.APPROisanon-profit,non-governmentorganization,headquarteredinKabul,Afghanistan,withregionalofficesinBamyan,Herat,Mazar-eSharif,Jalalabad,andKandahar.APPROisalsoafoundingmemberofAPPRO-Europe.APPRO’smissionistoprovideinsightsonhowtoimproveperformanceagainstthedevelopmentmilestonessetbytheAfghangovernmentandinternationaldonors.APPROconductsappliedresearch,carriesoutevaluations,andprovidestrainingonpolicyanalysis,MonitoringandEvaluations,advocacy,andresearchmethods.Formoreinformation,see:www.appro.org.afContact:mail@appro.org.afAboutIWAIWAwascreatedinOctober2005andestablisheditselfasanindependentcivilsocietyorganizationin2006.ThemissionofIntegrityWatchistoputcorruptionunderthespotlightthroughcommunitymonitoring,research,andadvocacy.IWA’sworkhasthreemajorcomponents:(1)CommunityMonitoring,(2)Research,and(3)Advocacy.IWA’sresearchispolicy-oriented,measuringtrends,perceptions,andexperiencesofawiderangeofcorruption-relatedissuesinsecurityandjusticesectors,extractiveindustries,budgetandpublicfinancemanagement,andaideffectiveness.IWA’smonitoring,research,andadvocacyareaimedatdevelopingnew,ground-breakingempiricalresearchinordertosetanti-corruptionagendas,influencedecision-makers,andengagepublic.Formoreinformation,see:www.iwaweb.orgContact:info@iwaweb.orgCoverPhoto:AfghanThinkRoom:http://afthinkroom.com/english/index.php/83-media/76-afghan-journalists-are-deprived-of-access-to-informationAPPROtakesfullresponsibilityforallomissionsanderrorsinthisreport.©2015.AfghanistanPublicPolicyResearchOrganizationandIntegrityWatchAfghanistan.Somerightsreserved.Thispublicationmaybestoredinaretrievalsystemortransmittedonlyfornon-commercialpurposesandwithwrittencredittoAPPROandIWAandlinkstoAPPRO’swebsiteatwww.appro.org.afandIWA’swebsiteatwww.iwaweb.org.Anyotheruseofthispublicationrequirespriorwrittenpermissionwhichmaybeobtainedbywritingto:mail@appro.org.aforinfo@iwaweb.org.

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TableofContents

Acknowledgements ...................................................................... Error!Bookmarknotdefined.

ExecutiveSummary .................................................................................................................3

AboutThisReport....................................................................................................................5

Objectives ...............................................................................................................................5

Methodology...........................................................................................................................5

Limitations ..............................................................................................................................6

OverviewofReport .................................................................................................................6

Introduction ............................................................................................................................7

Afghanistan’sAccesstoInformationLaw............................................................................... 10

HealthServices ...................................................................................................................... 12FormalProvisions............................................................................................................................ 13SupplySideofInformation ................................................................................................................. 13DemandSideofInformation .............................................................................................................. 15

InformalProcedures........................................................................................................................ 16

ElectricityServices ................................................................................................................. 16FormalProcedures .......................................................................................................................... 16SupplySideofInformation ................................................................................................................. 17DemandSideofInformation .............................................................................................................. 17

InformalProcedures........................................................................................................................ 18

ConclusionandRecommendations ........................................................................................ 19Recommendations .......................................................................................................................... 20

Appendix1:ListofInterviewees ............................................................................................ 22

Appendix2:GuidingQuestions.............................................................................................. 24

Appendix3:PicturesfromtheHospitals ................................................................................ 25

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ExecutiveSummary

Thisassessmentwascarriedouttoestablishthecurrentarrangementsforaccessbythegeneralpublictoserviceinformationfrompublicinstitutions.TherecommendationsfromthisassessmentareintendedtoinformeffortstoreformAfghanistan’snascentAccesstoInformationLaw.ThetwoserviceareasassessedwerethepublichealthsectorandelectricityprovisioninKabul.TheproxyforthehealthsectorwasaselectednumberofhospitalsinKabul.ForelectricityprovisionDeAfghanistanBreshnaShirkat(DABS)inKabulwasapproacheddirectly.Thedataforthisreportwerecollectedthroughadeskreviewofavailableliteratureincludinglegislationandofficialreportsonaccesstoinformation,keyinformantinterviewswithselectedgovernmentofficials,journalists,rights-basedcivilsocietyorganizations,prominentindividuals,andhealthcareandenergysectorprofessionals,focusgroupdiscussionswithcommunitymembersatthehospitalsandDABS,andparticipatoryobservationthroughmakingrequestsforinformationonservicesathospitalsandDABSbytheresearchers.ThisreportfindsitistoosoontoconcludewhetherornottheimplementationoftheAccesstoInformationLawhasbeenasuccess.However,thereportalsofindsthatthemainchallengeinimplementingtheLawisonefacedbyallotherformsoflegislationinAfghanistan.Thatis,thisLawwillbeoflittleornoconsequenceinpracticalandimmediatetermswithouteffectiveimplementation.WithsupplementarymeasuressuchassettinguptheComplaintsCommitteethisLawcallsfor,cross-referencingwithotherrelatedlegislation,passageoftime,andpoliticalstability,thelikelihoodwillincreaseforthepracticalutilityoftheAccesstoInformationLaw.Aswithmostotherfundamentallegislation,muchcouldbelearnedbyAfghanistanfromtheexperienceofothercountriessuchasSwedenwiththeoldestlegislationonfreedomofinformationandtheUnitedStateshavinghadtheFreedomofInformationActforalmostfivedecades,thepracticalimplicationsoftheAct,andthemanyamendmentsmadetotheActinresponsetolearningfromtheimplementationoftheAct.Similarly,India’sexperienceinimplementingsimilarlegislationoffersarichsourceforlessonslearnedandtherolecivilsocietycanandmustplayinsuccessfulimplementationoftheLaw.Fromagovernment’sperspective,therearevaluablelessonstobelearnedfromtheIndianexperienceontheimportanceofsupplementarymeasurestoinstitutionalizelegislation.ThesemeasuresincludemassawarenessraisingprogramsbythegovernmentontheexistenceandusefulnessoftheLawandchangesintheeducationalcurriculainprimary,secondary,post-secondary,andliteracyeducationtofamiliarizestudentswithlegalprovisionsontheirrightstoinformation.AlsoinIndia,somestateshaveintroduceddedicatedinfrastructuresuchasatollfreephonelineforrequestsforinformationortextingprovisionsformobilephoneuserstofollowupontheirrequestsforinformationfromthegovernment.Giventhenumberoflessdevelopedcountrieswithformallegislationontheright/accesstoinformation,theimportanceoftransparencyininformationflowinallmodelsofgoodgovernance,andthedebateonhowthestateshouldhandleandmanageinformationonitscitizens,thedebateontheroleandutilityofformallegislationonright/accesstoinformationislikelytocontinueandintensify.Afghanistan,despitethepoliticalinstability,isnoexceptiontothelistofcountriesthatwillhavethisdebateintheyearstocome.

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TherecourseprovisionofAfghanistan’sAccesstoInformationLaw,throughtheComplaintsCommittee,hasasignificantpotentialroletoplayinincreasingthetransparencyandaccountabilityofgovernmentalentitieschargedwithserviceprovisionforthepublic.Assuch,theLawcouldbeusedasaneffectiveinstrumenttoeliminatepettycorruptioninservicedelivery,forexample.IntheAfghancontext,asinothercontexts,corruptionandnepotismareamongthemainobstaclestoaccesstoinformation.ThecaseofIndiaillustratesthattwokeyelementsinsuccessfulinstitutionalizationofaccess/righttoinformationlegislationarepoliticalstability(andpoliticalwill)andavailabilityofresourcestoprovideadequateandreliableservices.InAfghanistan,continuedconflict,insufficientandinadequateinfrastructureandresources,widespreadinstitutionalauthoritarianism,andcorruptionarelikelytoremainasmajorchallengesinaccesstoandpracticingtherighttoinformation.Themostsignificantfindingfromthispilotassessmentisthatright/accesstoinformationbythepublicisunderminedbythetwomainfactorsofthepubliclackingawarenessofitsright,andthoseinauthority,especiallyinthehealthsector,showingatendencytoactwithhostilitytowardmembersofthepublicseekinghelp.Therecommendationsofthisassessmentare,necessarily,quitegeneralandintendedtodrawattentiontothepreparatoryworkthatwillneedtobeundertakenasamajorpartoftheeffortstoimplementandrevisetheAccesstoInformationLawinAfghanistan.Recommendations• Anawarenessraisingcampaignwillneedtobeinitiatedbythegovernmentandcivilsociety

organizationsontheAccesstoInformationLawanditsbenefitsforthepublicandstateinterests.• Particularattentionwillneedtobepaidtoawarenessraisingamongtheilliterateandparticularlyin

rural/remoteareas.• Incorporateawarenessoftheright/accesstoinformationlegislationineducationcurriculafrom

primarytopost-secondaryeducationaswellasinliteracyprograms.• Asmuchaspossible,setupspecific,clearlyidentifiableinformationpointsorsectionsin

governmentalorganizationswiththemaintaskofassistingthepublicinitsrequestsforinformation.• Ensurethatgovernmentandsemi-governmententitieshavespecificprovisionsforaccessto

informationbythepublicintheirstrategies,asaspecificpolicy,oraclearsectioninthecommunicationpolicy.

• Formalizethecitizens’righttoapproachpublicandstate-relatedofficialsandentitiesforinformationwithouthavingaministerialauthorizationletter,thecurrentpreconditionforreleaseofinformationbyallgovernment,semi-government,andsomenon-governmentorganizationsandentities.

• Makeinnovativeusesofdigitaltechnologysuchuseofmobileorsmartphonesandhotlinestoencouragethepublictoexerciseitsright.

• Traingovernmentandsemi-governmentofficialsoftheirresponsibilities,rights,andtheconsequencesoffailingtooperateaccordingtotheobligationssetoutintheAccesstoInformationLaw.

• InfuturereformsoftheAccesstoInformationLaw,attemptsshouldbemadetodefinetheboundariesofthelawmorepreciselyonwhatconstitutesnationalinterestorpersonalfreedominthecontextofaccesstoinformation.

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AboutThisReport

Thisassessmentwascarriedouttoestablishthecurrentarrangementsforaccessbythegeneralpublictoserviceinformationfrompublicinstitutions.TheresearchwascarriedouttogeneraterecommendationstobeconsideredforpossiblereformtotheAccesstoInformationLaw.ThetwoserviceareaswhereaccesstoinformationwasstudiedduringthisassessmentwerethepublichealthsectorandelectricityprovisioninKabul.RepresentingthehealthsectorwerethehospitalsinKabulwhileforelectricityprovisionDeAfghanistanBreshnaShirkat(DABS)inKabulwasapproacheddirectly.Theguidingquestionsforthisresearchare:

1. Whatistheprocessofgainingaccesstoinformationregardingservicesinpublichealthandelectricityprovision?

2. WhatarethelegalrightsofthecitizenstodemandforserviceinformationfrompublichealthandDABSofficials?

3. Howarecitizens’rightsgranted/realizedinpublichealthandelectricityprovision?4. Whatmeasurescouldandshouldbetakentomakeservicedeliverymoretransparentand

accountabletothepublic?

ObjectivesWithafocusonhealthservicesandelectricityprovision,thispilotassessment:

- Identifiesanddocumentstheformalandinformalmechanismsthroughwhichthegeneralpublicaccessesinformationonserviceprovision

- Assessestheeffectivenessofthese,and- MakesrecommendationsforrevisionstotheGovernmentofAfghanistan’sAccessto

InformationActofDecember2014.

MethodologyThescopeanddepthofthisresearchweresetbasedonthetimeandresourcesallocatedtotheresearch.Duetolimitationsofbothtimeandresources,thisresearchwascarriedasapilotstudysinceneitherIntegrityWatchAfghanistan(IWA)–commissioningthisstudy,norAfghanistanPublicPolicyResearchOrganization(APPRO)–conductingthestudy,hadaclearideaofwhatwouldbefoundbytakingacloserlookataccesstohealthservicesandelectricityinlightoftheAccesstoInformationLaw.Assuch,therewasastrongexploratoryaspecttothisresearchtoestablishwhetherornotitwouldbeworthwhiletoconductmorethoroughandin-depthresearchasaseparateendeavor.Datawerecollectedthroughthefollowingactivities:• DeskReviewoftheavailableliteratureincludinglegislationandofficialreportsonaccesstoinformation.

• KeyInformantinterviewswithselectedgovernmentofficials,journalists,rights-basedcivilsocietyorganizations,prominentindividuals,andhealthcareandenergysectorprofessionals.

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• FocusGroupDiscussionswithcommunitymembersatthehospitalsandDABS,andParticipatoryobservationthroughmakingrequestsforinformationonservicesathospitalsandDABSbytheresearchers.

Thisrapidassessmentwascarriedouttodocumentthepracticalwaysinwhichthepublicaccessesinformationonservices.Tothisend,serviceprovisioninhealthandelectricityweremappedbasedonparticipatoryobservation,threefocusgroupdiscussionswithserviceseekingcommunitymembers,initiatedattemptbyresearchpersonneltoreceiveserviceatonehospitalandDABS,and16KeyInformantinterviews.SeeAppendix1foradditionaldetails.SeeAppendix2fortheguidingquestions.

Limitations

Themainlimitationofthisassessmentisthenarrowscopefordatacollection.Incaseswheredatasourcesweresuccessfullyaccessed,withsomeexceptionstherewaswidespreadunwillingnessbytheintervieweestoengageoranswertheresearchers’questions.Themainreasonforthislackofinterestisdue,inpart,tothelackofknowledgeoftheintervieweesabouttheexistenceoftheAccesstoInformationLawandtheimplicationsoftheLawfortheinterviewees’responsibilities.Inaddition,someintervieweesrefusedtocooperatebecausetheybelievedthatthesubjectoftheinterviewdidnotfallundertheirresponsibility.ConductinginterviewsinsidetheParliamentwaschallengingduetotightsecurityrestrictions.Theinterviewerswerenotallowedtocarryavoicerecorderandwouldtakenoteswhileconductingtheinterview.

OverviewofReport

Theintroductionprovidesasummaryofthewidercontextofaccessorrighttoinformationlegislation,focusingonSwedenandTurkeyasexampleswhileusingIndia’sexperienceasatestcase.AseparatesectionprovidesasummaryofthemainelementsofAfghanistan’sAccesstoInformationLaw.ThedatacollectedthroughobservationvisitstohospitalsandDABS,interviewswithkeyinformants,andfocusgroupdiscussionsareanalyzedundertheseparateheadingsofHealthandElectricity.Thelastsectionconcludeswithsomerecommendations.

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Introduction

Afghanistan’sAccesstoInformationLawcameintoeffectinDecember2014.BasedonanassessmentofthecontentsofthisLaw,the“GlobalRighttoInformationRating”(GRIR)ranksAfghanistanat63,comparabletoSwitzerlandbutbetterthanPortugal,Spain,Turkey,Pakistan,Greece,Denmark,Belgium,Italy,Germany,andAustria(ranked102).1Theworld’sfirstfreedomofinformation(inwrittenform)legislationwasadoptedbytheSwedishParliamentin1766.Thefirstparagraphof“HisMajesty’sGraciousOrdinanceRelatingtoFreedomofWritingandofthePress(1766)”reads:

That,havingconsideredthegreatadvantagesthatflowtothepublicfromalawfulfreedomofwritingandofthepress,andwhereasanunrestrictedmutualenlightenmentinvarioususefulsubjectsnotonlypromotesthedevelopmentanddisseminationofsciencesandusefulcraftsbutalsooffersgreateropportunitiestoeachofOurloyalsubjectstogainimprovedknowledgeandappreciationofawiselyorderedsystemofgovernment;whilethisfreedomshouldalsoberegardedasoneofthebestmeansofimprovingmoralityandpromotingobediencetothelaws,whenabusesandillegalitiesarerevealedtothepublicthroughthepress;Wehavegraciouslydecidedthattheregulationsissuedpreviouslyonthismatterrequiresuchappropriateamendmentandimprovementthatallambiguity,aswellasanysuchcoercivenessasisincompatiblewiththeirintendedpurpose,mayberemoved.

TheActwasapplicabletotheKingdomofSweden,which,until1809,includedFinland.TheActwassuspendedfrom1772to1809,butre-enactedin1809asakeypartofthenewSwedishConstitution.TheinitialpurposeoftheActwastoabolishpoliticalcensorshipofthewrittenwordbyabolishingthe“OfficeofCensor”andlimitingthepowersofthe“Chancellery”insupervising,approving,ordisallowingtextsforprinting.ThecurrentversionoftheActisoneoffourfundamentallawswithintheSwedishConstitution,theotherthreebeingtheInstrumentofGovernment,theActofSuccession,andtheFundamentalLawonFreedomofExpression.Inmoderntimes,theUnitedStateswasthefirstcountrytoadopttheFreedomofInformationAct,in1966,grantingitscitizenstherighttoinformationheldbyfederalgovernmentagencies.2Thefulllawwithamendmentscameintoeffectin1974.Inthedecadesthatfollowedothercountriesadoptedsimilarlawsawardingtheircitizensofsimilarrights.ThefirstcountriesthatfollowedtheexampleoftheUnitedStatesandadoptedsuchlawsweredevelopedcountrieswithstabledemocracies.However,inthelasttwodecades,anumberofdevelopingcountrieshavepassedsimilarlawsandthenumberofcountrieswithaccesstoinformationlegislationhasincreasedsignificantly.By2008morethan70countries,includingChina,JordanandTurkeyhadspecificlegalprovisionsgoverningtherightoraccesstoinformationbythepublic.3

1GlobalRighttoInformationRating(2015),availablefrom:http://www.rti-rating.org/country-data2SeeHogg,P.(2006),HisMajesty’sGraciousOrdinanceRelatingtoFreedomofWritingandofthePress(1766),inTheWorld’sFirstFreedomofInformationAct(Kokkola,Sweden:AndersChydeniusFoundation),availablefrom:http://www.chydenius.net/pdf/worlds_first_foia.pdf

3Mendel,T(2008):“FreedomofInformation:AcomparativeLegalSurvey”,UNESCO,Paris(P.3)

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Sweden,rankedbyGRIRat41foritsrighttoinformationlegalandinstitutionalprovisions,oftenservesasthebenchmarkforawiderangeofgoodgovernanceindicators.InpartthisisbecauseinmanyareasofgoodgovernanceSwedenhaslongstandingandinstitutionalizedlegalprovisions.ThelatesteditionofSweden’sPublicAccesstoInformationandSecrecyActbeginswiththegeneralprinciplesofpublicaccesstoinformation.AccordingtotheActpublicaccesstoinformation:

…meansthatthepublicandthemassmedia–newspapers,radioandtelevision–areentitledtoreceiveinformationaboutstateandmunicipalactivities.Theprincipleofpublicaccesstoinformationisexpressedinvariousways:- Everyoneisentitledtoreadthedocumentsofpublicauthorities:accesstoofficialdocuments;- Officialsandotherswhoworkforthestateormunicipalitiesareentitledtosaywhattheyknowtooutsiders:freedomofexpressionforofficialsandothers;

- Officialsandothersintheserviceofthestateormunicipalitiesarenormallyentitledtodiscloseinformationtonewspapers,radioandtelevisionforpublicationortopersonallypublishinformation:righttocommunicateandpublishinformation;

- Thepublicandthemassmediaareentitledtoattendtrials:accesstocourthearings;- ThepublicandthemassmediamayattendwhenthechamberoftheRiksdag(theSwedishParliament),themunicipalassembly,countycouncilassemblyandothersuchbodiesmeet:accesstomeetingsofdecision-makingassemblies.4

TheActholdsthat“SwedishcitizensandaliensinSwedenenjoycertainfundamentalrightsandfreedoms[including]thefreedomofexpression[whichmeans]…thefreedomtocommunicatebyword,inwritingorimagesorinotherwaystocommunicateinformationandexpressideas,opinionsandfeelings.”ThelimitationsoftheActaresummarizedunder“dutyofconfidentiality”5andwithreferencetotheFreedomofthePressAct,accordingtowhichstateentitiesreservetherighttowithholdinformationiftheinformationrelatesto:

1. NationalsecurityorSweden’srelationswithaforeignstateoraninternationalorganization;2. Thecentralfinancialpolicy,themonetarypolicy,orthenationalforeignexchangepolicy;3. Theinspection,controlorothersupervisoryactivitiesofapublicauthority;4. Theinterestofpreventingorprosecutingcrime;5. Thepubliceconomicinterest;6. Theprotectionofthepersonaloreconomiccircumstancesofprivatesubjects,or7. Thepreservationofanimalorplantspecies.6

TheActplacesnolimitationonanymemberofthepublictoattendpubliccourtproceedingsunlessruledagainstbytheParliamentandbasedonlegalgroundstoprotecttherightsofothercitizens.7Moresignificantly,theActreferencesotherlawssuchastheLocalGovernmentActfortherightofthepublictoattendmeetingsofgovernmentaldecisionmakingassemblies.8Similarly,theActgrantstherightto

4MinistryofJustice,Sweden(2009),PublicAccesstoInformationandSecrecyAct,page1,availablefrom:http://www.government.se/contentassets/2ca7601373824c8395fc1f38516e6e03/public-access-to-information-and-secrecy-act

5Ibid.p.8.6Ibid.pp.13-14.7Ibid.p.9.8Ibid.p.10.

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themembersofthepublictorequestinformationfromauthoritiesandobligatestheauthoritiestoprovide“informationfromtheofficialdocumentsheldbytheauthoritythatarenotsubjecttosecrecy…[and]withoutimpedingtheusualfunctioningoftheauthority.”9Bywayofcontrast,theTurkishRighttoInformationLawNo.4982,ranked71byGRIR,hasthefollowingspecificprovisionsonaccesstoinformationandtheprovisionofinformationtopublic:

Article4–RighttoInformation:Everyonehastherighttoinformation.ForeignersdomiciledinTurkeyandtheforeignlegalentitiesoperatinginTurkeycanexercisetherightinthislaw,ontheconditionthattheinformationthattheyrequireisrelatedtothemorthefieldoftheiractivities;andonthebasisoftheprincipleofreciprocity.TherightsandtheobligationsofTurkeyundertheinternationalconventionsarereserved.Article5–TheObligationtoProvideInformation:[Public]institutionsarerequiredtoapplyadministrativeandtechnicalmeasurestoprovideeverykindofinformationanddocument,withtheexceptionssetoutinthislaw,toprovidetheinformationforapplicants;andtoreviewanddecideontheapplicationsforaccessinformationpromptly,effectivelyandcorrectly.TheotherlegalregulationswhichareincompatiblewiththeprovisionscontainedhereinshallceasetobeapplicableasofthedatethisActcomesintoforce.10

TheexceptionstoopenaccesstoinformationaregiveninArticles15-19,withafocusoninformationthatcouldbeusedtoundermineotherindividual’srightsorthesecurityandinterestsoftheTurkishstatepoliticallyoreconomically.11Therearenumerousassessmentsandreportsonaccesstoinformationlawsindifferentcountries.Forexample,IndiahasmadeconcertedeffortstoexaminetheeffectivenessofitsownRighttoInformationLaw.12Between2007and2009,ninemajorassessmentsofIndia’sRighttoInformationActwereconducted.TheconstraintsinimplementingthelawappeartobesimilartothoseidentifiedinthispilotresearchontheimpactofAfghanistan’sAccesstoInformationLaw.Soonafterthepublicationofthefirstfewassessments,theIndiangovernmentinitiatedaprogramtoaddresstheweaknessesintheLawanditsimplementation.13Asasolutionforthelackofawarenessamongthepublic,thestateofKerala’sInformationCommissionenlisteditsliteracyauthoritytoprovideRighttoInformation(RTI)classestoalmost300,000people.Thestatealsoensuredthateducationalcurriculaforprimary,secondary,post-secondary,andliteracyeducationincludedcoursesontheRighttoInformationLaw.Similarly,toovercomethechallengesof

9Ibid.p.20.10GovernmentofTurkey(1984),TurkishLawOnTheRightToInformation,LawNo:4982,page2,availablefrom:http://www.bilgiedinmehakki.org/en/index.php?option=com_content&task=view&id=7&Itemid=8

11Ibid.Pages5-612Roberts,A.(2010):“AGreatandRevolutionaryLaw?TheFirstFourYearsofIndia’sRighttoInformationAct”,PublicAdministrationReview,70(6),(925-33)

13AcompleteandextensiveoverviewofthesolutionscanbefoundinRoberts,A.(2010,922-25)

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bureaucraticinefficiencythegovernmentofthestateofBiharhasmadeitpossibleforinformationseekerstomakeRTIrequeststhroughasingle,tollfreenumber.Similarly,inthestateofAndhraPradesh,informationseekerscanobtainanautomatedupdateonthestatusoftheirrequestforinformationbysendingtextmessagefromacellphone.TheexperiencefromIndiaandelsewherestronglysuggeststhatincorporatingtheAccesstoInformationLawintootherlawsenhancestheinstitutionalizationoftheLaw.Contrarytomanyofitspredecessors,Afghanistanhasbeeninacontinuousstateofconflictforalmost40yearsandpoliticallyislessstable,morepronetocorruptionandviolence,andcurrentlyhasaweakpoliticalandjudicialsystem.Becauseofyearsofconflictandwidespreadcorruptionandpatronage,theAfghanbureaucracyhasbeendescribedasa“messymixofunsteadyformalinstitutionsandpowerfulinformalrulesandorganizations.”14TherelativelyyoungAfghandemocracyhasoneofthelowestliteracyratesintheworldat31percent.15Povertyiswidespreadwith35percentofthepopulationlivingbelowthepovertyline.16TheGDPpercapitaishalfofIndia’sandone-eightiethoftheUnitedStates’.17AnestimatedthreequartersoftheAfghanpopulation,around24millionpeople,stillliveinruralareas.18

Afghanistan’sAccesstoInformationLaw

TheAfghanAccesstoInformationLawisbasedonthe3rdparagraphofArticle50oftheAfghanConstitution,statingthat“thecitizensofAfghanistanshallhavetherightofaccesstoinformationfromstatedepartmentsinaccordancewiththeprovisionsofthelaw”.19Article50providesfortwolimitationstotherighttoinformation.First,theLawdoesnotapplywhenaccesstoinformationisharmfultoothers’rightsand,second,availabilityoftheinformationmustnotriskpublicsecurity.

14Mukhopadhyay,D.(2009):“WarlordsasBureaucrats:TheAfghanExperience”,PublishedasCarnegiePapers,CarnegieEndowmentforInternationalPeacein‘MiddleEastProgram’,Number101,August2009

15Matsumoto,N.(2015):“EnhancementofLiteracyinAfghanistanProgram”,PublishedbyUNESCOKabul.Availableat:http://www.unesco.org/new/en/kabul/education/enhancement-of-literacy-in-afghanistan-ela-program/(Retrieved:May25,2015)

16WorldBank(2015):“PovertyHeadcountRationatNationalPovertyLines”,Availableat:http://data.worldbank.org/indicator/SI.POV.NAHC/countries/AF?display=graph(Retrieved:May25,2015)

17WorldBankestimatedthenominalGDPofAfghanistanataround$650(US),whichisoneeightiethofthatoftheUnitedStates($53,042)andlessthanonehalfofIndia’sGDP($1,497).DataAvailableat:http://data.worldbank.org/indicator/NY.GDP.PCAP.CD(Retrieved:May25,2015)

18IndexMundi(2015):“AfghanistanDemographics2014”,Availableat:http://www.indexmundi.com/afghanistan/demographics_profile.html(Retrieved:May25,2015)

19IslamicRepublicofAfghanistan(2004),ConstitutionofAfghanistan,Article50,p.13.

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TheAccesstoInformationLawappliestogovernmentalinstitutionsandnon-governmentalentitiessuchasNGOs,civilsocietyorganizations,andpoliticalparties.Thelawconsistsof32articles,dividedinto6chaptersasfollows:

1. GeneralProvisions2. Accesstoinformation3. ProvidingInformation4. OversightCommissiononAccesstoInformation5. AddressingComplaints6. MiscellaneousProvisions

Article2liststheobjectivesoftheLawasfollows:

1. Toensuretherightofaccesstoinformationforallcitizensfromthegovernmentinstitutions.2. ToobserveArticle19oftheInternationalCovenantonCivilandPoliticalRights,Article3

ofAfghanistan’sConstitutionaccordingtowhichnolawcanbeinconflictwithIslamicShariaprinciples,andArticle28ontheresponsibilityofnon-governmentorganizationstoprovideinformation.

3. Toensuretransparencyandaccountabilityintheconductofgovernmentalandnon-governmentinstitutions.

4. Structuretheprocessofrequestinginformationbythepublicandtheprovisionofinformationbygovernmentalentities.20

TheLawspecifiesinformationas“anytypeofdocument,recordedandregisteredinformation,modelsandsamples”.TheLawalsorequiresthatinformationbypublicentitiesbedisseminatedinamanner“accessiblebyandusabletothepublic”.21Anyindividualororganizationhastherighttoaskforinformationfromgovernmentalentitiesandtheentityinquestionisobligedtocomplybyprovidingtherequestedinformation.Theapplicationforinformationissubmittedthrougha“RequestforInformation”form.22Theresponsefromthegovernmententityistobeprovidedinwrittenformwithintendaysoftherequest.23Anadditionalthreedayscanbegrantedincasesofunexpectedcircumstances.Iftherequestissubmittedbythemedia,theinformationshallbeprovidedwithinthreedayswithoutthepossibilityofextension.Iftherequiredinformationconcernsthesafetyandsecurityofanindividual,itshallbeprovidedwithin24hoursoftherequestwithnoprovisionsforextensions.Theinformationprovidingentitydeterminesthecostsofpreparingandprovidingtheinformation,payablebytherequester.TheamountchargedbytheinformationprovidingentityissubjecttolimitssetbytheMonitoringCommission.24Eachgovernmentalentityshouldhaveadepartmentorsectioninchargeofprovidinginformationtothosewhorequestit.Thedepartmentorsectionshouldprovidetherequesterwiththerequiredforms.Theinformationdepartment’sresponsibilityistoensurethattheinformationrequestformisdeliveredtotherightdepartmentorindividualwithinthegovernmentalentity.25

20IslamicRepublicofAfghanistan(2014),AccesstoInformationLaw,Article2,p.1.21Ibid.Article3,p.2.22Ibid.Article5,p.4.23Noneoftheentitiesvisitedforthisresearchappearedtohaveinformationrequestforms.24NospecificdatehasbeensetfortheestablishmentoftheOversightCommission.25Ibid,Article11,p.8.

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Complaintsregardinglackofcooperationortransparencyshouldbesubmitted,inwrittenform,totheentityinquestion.Ifthecomplaintsarenotaddressedwithinthreedays,theapplicantcansendthecomplaintstotheOversightCommission.26TheOversightCommissionistoconsistof13individualsappointedforaperiodofthreeyears.27ThisrapidassessmentreportfocusesonakeypurposeoftheAccesstoInformationLaw–theprocessofrequestinginformationbythepublicandtheprovisionofinformationbygovernmentalentities.WhileitistooearlytoconductacomprehensiveassessmentoftheimpactofthislawontheflowofandaccesstoinformationinAfghansociety,itispossibletoinvestigatethepotentialimpactofthelawinspecificareassuchasthepublic’srighttoknowaboutpublicservicesandwhetherthislawcouldbecomeausefulinstrumentineffectingstructuralreforminpublicservicedeliveryinAfghanistan.Tothisend,thisrapidassessmentoftheAccesstoInformationLawfocusesonpublicawarenessofrightsinaccesstopublicservicesintwoareas:healthanddomesticelectricity.

HealthServices

In2002Afghanistanwasrankedashavingoneoftheworsthealthcaresystemsintheworldwithonly9percentofAfghanslivingwithinanhour’swalkingdistancefromahealthfacilityandamaternalmortalityrateof1,600/100,000livebirthsperyear.28Afghanistanalsohadinfantandunder-fivemortalityratesestimatedat165and257per1,000livebirthsperyear,respectively.29In2015anestimated57percentofthepopulationhasaccesstosomeformofhealthservice.Infantmortalityandchildmortalityrateshavedroppedsince2003byover50percentwhiletherearethreetimesmoretrainedmidwivespresentatbirthin2015comparedto2003.Despitethesesignificantgains,theavailabilityandqualityofhealthservicesremaincauseformuchconcern.30Whileadditionalmeasureswillneedtocontinuetobetakentoincreaseaccesstobasichealthservicesthroughoutthecountry,improvementscanandshouldbemadeinhealthserviceprovisionthroughtheexistingfacilities.Inpart,bringingimprovementsinqualityofserviceprovisionisafunctionofawarenessofthepublicofitsrighttoaccessandreceiveadequatehealthservicesandthefulfillmentbyhealthserviceprovidersoftheirlegalobligationtoprovideservicestothebestoftheirabilitytomeetthedemandbytheserviceusers.

26ProvisionsforcomplaintsareavailableinArticle13oftheAccesstoInformationLaw.SincetheOversightCommissionhasnotyetbeenappointed,thereisnoofficialsystemofaddressingcomplaints.

27TheOversightCommissionmembersaretobedrawnfromAfghanistanIndependentHumanRightsCommission,MinistryofCommerceandIndustry,MinistryofFinance,MinistryofCommunicationsandInformationTechnology,AfghanistanIndependentBarAssociation,AfghanistanJuristsAssociation,UnionofJournalists,civilsocietyorganizations,politicalparties,andAfghanistanChamberofCommerceandIndustries.TheOversightCommissionhasnotbeensetupatthetimeofwriting(June2015).

28UNICEF(2002)29WHO(2002)30See,forexample,APPRO’sfiveroundsofmonitoringonaccesstoservices,includinghealth,in12provincesofAfghanistansince2012,titled“MonitoringWomen’sSecurityinTransition”,availablefrom:http://appro.org.af/category/publications/

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FormalProvisions

ThissectionreviewstheformalprovisionspertainingtoservicedeliveryintheAccesstoInformationLaw,followedbydocumentingtheextenttowhichhealthservicesareprovidedaccordingtotheLawandwhetherandhowawarenessabout,anduseof,theLawbyserviceusersandproviderscanimproveserviceprovisioninhealth.Theformalproceduresmaybedividedintotwocategories,thesupplysideandthedemandside.Thesupplysideofinformationisdisclosure,referringtotheeffortsandformalobligationsofpublichealthentitiesandgovernmentinstitutionstoproactivelyinformthegeneralpopulationastheactualandpotentialrecipientsofservice.Thedemandsideofinformationdisclosureconsistsoftheneedforinformationbyactualandpotentialusersoftheserviceandthebarriersandimpedimentsinaccessingtheinformation.

SupplySideofInformationOnthesupplyside,theAccesstoInformationLawobligespublicorganizationsincludinghospitalstoproactivelyprovidethepublicwithinformationonthehumanresourcemanagement,finances,andservicestheyprovideandthelaws,regulations,andproceduresaccordingtowhichtheyareexpectedtooperate.31Inaddition,copiesofcontractsandagreementsofthepublicentityshouldbeavailabletothepublicandpublished.Forhospitalsandhealthcentersthisimpliesthatadatabaseoftheiremployeesandthetypesofservicesthattheyprovideshouldbeproactivelypresentedtothepublic.Inpractice,however,thesupplyanduseofinformationisconstrainedbybureaucraticindifferenceandnegligence,poorpublicawareness,andaformofwhathasbeentermed“institutionalsadism”andhostilitythatcharacterizeslargeswathesofthepublicsectorinAfghanistan.32BureaucraticIndifferenceTheinformationprovidedbytheMinistryofPublicHealth(MoPH)isdescribedasconfusing,disorganized,andadhoc.Also,thefailurebyhospitalstoprovideadequateinformationtothepublicabouthealthservicesispartofamoregeneraltrendoflawsbeingmadebutnotenforced.Forexample:

Ifwerankgovernmentalorganizationsontheirabilitytoprovideinformation,wewillseethat[MoPH]isaverydifficultorganizationtoobtaininformationfrom.…IthasbeensixmonthssincetheAccesstoInformationLawhasbeenpassedandnostepshavebeentakenby[MoPH]toimplementit.Thisshowsthatthegovernmentdoesnotimplementwhatitimposes.33

Healthcentersingeneraldonothavemeasuresinplaceforproactiveinformationdisclosure.Themostcommonformofinformationdisseminationabouthealthservicesistheuseofinformationsignsinsidehealthfacilities.Also,publicdisseminationofinformationonhealthissuesisseenastheresponsibilityofMoPHandnotindividualhealthcenters:

31IslamicRepublicofAfghanistan(2014),AccesstoInformationLaw,Article14,Sections1-9,p.10.32Forsomeexamplesofthistypeofsadismsee“TheHappyUnionofCorruptionandOfficialSadisminAfghanistan”,availablefrom:http://appro.org.af/the-happy-union-of-corruption-and-official-sadism-in-afghanistan/

33KI-M-Jou-2

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Wedonothaveareceptionorinformationdeskatthehospital.Nordowehaveadepartmentthatisinchargeofinformingthe[serviceusers].However,wedoreportouroperationstothe[MoPH]onamonthlybasisandtheMinistry,throughitsDepartmentofInformation,canthendistributeourinformationtoanyindividualwhoisinterested.34

Thehospitalsvisitedforthisresearchalllackedsufficientsignageontheirservicesandareasofwork.Forexample,onehospitalclaimedthatallthenecessaryinformationonservicesprovidedandrightsofthepatientswaspostedonsignsthroughoutthehospital.TheresearchersfoundasinglebanneronrightsofpatientswritteninEnglish,clearlyofnoutilityorconsequenceforthevastmajorityofservicerecipients,mostofwhomareilliterateintheirownlanguage.Inaddition,thebanneronpatients’rightswasplacedabout10metersbehindafence,makingitthereadingofthetextinsmallfontimpossible(Figure1,Appendix2).Awomen’shospitalclaimedthatitbroadcastsrightsofpatientsontheTVscreensinwaitingrooms.OncloserinspectionittranspiredthattheTVscreenswereturnedoff.ThepatientsinthewaitingroomstatedthattheyhadneverseenTVsworking(Figure2,Appendix2).Ahospitalforinfectiousdiseaseslackedappropriatesignsnotonlytoinformpatientsoftheirgeneralrights,butalsourgethepatientsandvisitorsfortakingprecautionsagainstthespreadofinfectiousdiseases.Atageneralhospital,therightsofpatientsandotherinformativesignswerepostedinthemainhallinDariandthoughtherewasnoinformationdeskorreceptionavailable,thejanitorwaspresentandseemedrelativelywellinformedaboutthedifferentdepartmentsofthehospital(Figure3,Appendix2).PoorPublicAwarenessAmaincauseoffailureintheapplicationoftheAccesstoInformationLawisilliteracy,whichpreventsaccesstoinformationinwrittenform,andtheabsenceofanyeffortbytherelevantauthoritiestocompensateforthisbarrierby,forexample,displayingthenecessaryinformationthroughpicturesandschematics:

NowtheAccesstoInformationLawhasbeenpassedandallcitizensofAfghanistanhavetherighttoaccessinformation….But,alargepercentageofpeopleisunawareofthisrightbecausethevastmajorityofthepopulationisilliterate.Atthesametime,thegovernmentisnotdoingmuchtoinformthem[throughothermeans]….Wecanevensaythatthelawisnotbeingimplementedatall.35

Or

ItmustbesaidthattheAccesstoInformationLawinAfghanistanhasnotbeeninstitutionalizedyet.Hence,thetalkabouttheimplementationofsuchalawanditseffectonpeoplecanberatherfruitless.…Whenthelawisnotinstitutionalizedandimplemented,thelevelofawarenessamongpeopleautomaticallyremainslow.36

34KI-M-MoPH-435KI-F-MP-236KI-M-ACFO-1

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Inhospitalsalmostalltheinformationforserviceusersissuppliedinwrittenform.Similarly,theMoPHinformsthepublicthroughwrittenmedia.37Thesemethodsonlyserveaminorityofthepopulationwhoareliterateandliveinurbanareasandhaveaccesstoelectricity,Internet,TV,andnewspapers.Theilliteratemajorityremainsunawareoftheavailabilityandtherighttoinformation.Corruption,FavoritismandHostilityLackofawarenessamongserviceusersincreasesthepossibilityofpatientsbeingmisinformed,havetheirrightsabusedbytheserviceproviders,orbeingmistreated.PreviousresearchbyAPPROreportsofcaseswheresomemidwivesandgynecologistsinprovincessuchasHeratandBamyanaskwomenforpresentsandmoney(bakhshish)whilethewomenarestillinlabor.38NepotismiswidespreadinAfghanistanandthehealthsectorisnoexception.39Forexample,inawomen’shospitalitwasobservedthatpatients,includingpregnantwomen,werekeptwaitingwhileotherpatientswereabletojumpthewaitingline,beingusheredthroughbypersonalcontacts.Duringthevisitatawomen’shospitalinKabul,amanwasobservedcomplainingthathiswifewasneardeathduetoapost-caesarianinfection.Asthehusbandcontinuedtocomplainandseekhelp,thedoctorgotangryandsaid:“Stopcomplaining!Thisisthewaylifeis,somepeopleliveothersdie”.

DemandSideofInformationAccordingtotheAccesstoInformationLawtheapplicationforinformationistobedocumentedthrougha“RequestforInformation”form,theresponsetowhichshouldbeprovidedwithintendaysoftherequestbeingsubmitted.40Anadditionalthreedayscanbegrantedtotheinformationprovidingpublicbodyincasesofunexpectedcircumstances.Theprocessofobtaininginformationisconstrainedbyalackofinformationcentersandrequestforms,lackofgrievancehandlingmechanisms,andbureaucraticbarriers.InformationCentersandRequestFormsNoneofthehospitalsvisitedhadaninformationdepartmentordesk.Thechildren’shospitaldidhaveareceptiondeskandtheresearchersweretoldthatthereceptionistwasnotavailablebecauseitwasThursday.However,latervisitsandconversationswithcleanersandotherhospitalstaffindicatedthatthedeskhadbeenstandingidleforatleastsixmonths.Theregistrationdeskatthehospital,alongwiththenurses,cleanersandguardsprovidedinformationtopatientsinresponsetotheirvariousqueries.Also,noneofthehospitalsvisitedpossessedtherequiredRequestforInformationforms.Theunavailabilityofforms,incombinationwiththeabsenceoffunctioninginformationcentersorpublicrelationsdepartmentsmakesdemandingandobtaininginformationfrustratinganddifficultforthegeneralpublic.37KI-M-MoPH-4,KI-M-MoPH-138ThiswasreportedduringfocusgroupdiscussionswithhousewivesinBamyanandHeratprovincesduringSeptember–December2014.

39MuchhasbeenwrittenabouttheextentofnepotismwithinallsectorsinAfghansociety,seeforexampleEuroasianet’s“Afghanistan:Nepotism,CronyismWidespreadInGovernment”,Availableat:http://www.eurasianet.org/departments/insight/articles/eav051103.shtml.(RetrievedMay25,2015)

40IslamicRepublicofAfghanistan(2014),AccesstoInformationLaw,Article5,Section2,p.4.

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LackofGrievanceHandlingMechanismsTheComplaintsCommission,requiredaspartoftheAccesstoInformationLaw,hasnotyetbeenformed.Theabsenceofaformalbodytodealwithgrievances,complaints,orsuggestionsforimprovementsunderminestheimplementationofthelegalprovisionsandenforcingcompliancebytheregulatedentities.BureaucraticBarriersGovernmentbureaucracyinAfghanistanis,ingeneral,amajorimpedimentinaccessbythepublictoinformation.GaininginformationonhospitalsrequiresindividualstoseekpermissionfromtherelevantMoPHsectionfirstandthentopresentthepermissionlettertothehealthfacilityfromwhichformalinformationissought.Thisisoftenatimeconsumingandfrustratingtask.41

InformalProcedures

Themostcommonsourcesforinformationonaccesstohealthservicesathospitalsarethewordofmouth,trialanderrorbytheinformationseekers,andexperiencesfromownorothers’pastexperiences.42

ElectricityServices

AswithmostservicesinAfghanistan,energydemandfaroutstripsthesupplycapacity.Also,aswithmostsituationsofsupplyshortages,thepotentialforinequitiesinreceivingservice,inequalitiesinprovidingservice,andcorruptiontosecureserviceincreases.Theprojectedactualcapacityforelectricityis1,116MegaWattwhiletheestimateddemandis4,212MegaWattandincreasingatarapidrate.43Thepercentageofthepopulationwithaccesstoelectricity(grid-basedpower,micro-hydro,andsolarpanelstations)inAfghanistanisamongthelowestintheworld,ataround30percent.44

FormalProcedures

ThesupplysideoftheinformationflowinelectricityservicesprovisionconsistsofeffortsbyDABSandlegalobligationtoprovideinformationtothegeneralpublic.Thedemandsideoftheinformationflowconsistsoftheneedsoftheelectricityservicesusersandtheimpedimentsingainingaccesstoinformationregardingthoseneeds.

41KI-M-JOU-2,KI-M-ACSFO-142KI-M-MOPH-3,FGD-F-H-PA43See:http://eneken.ieej.or.jp/data/3190.pdf,accessedJune1,2015.44WorldBank(2015),AfghanistanOverview,availablefrom:www.worldbank.org/en/country/afghanistan/overview

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SupplySideofInformationTheDABSisobligatedbylawtoproactivelyprovidethepublicwithinformationonitshumanresourcemanagement,finances,theservicestheyprovide,andthemannerinwhichtheservicesareprovided.FieldvisitstoDABScentersandthesubsequentobservationsbytheresearchersinKabulshowthatthecentersareresponsivetotherequestsforinformationonservicesfromthemembersofthepublic.Inaddition,DABShaspublishedthenamesandcontactdetailsofitsboardofdirectorsaswellasshareholdersalongwithauditedannualfinancialreports,planningandstrategicdocument,newsupdatesonelectricitybillingsystems,andmethodsofpaymentonitswebsite.45DABS’sLinkedInpageprovidesaccesstonamesandCVsofmore80DABSemployeeswithlinkstoaLinkedInaccount.46OnitsFacebookpage,DABSprovidesthelatestnewsandupdatesabouttheactivitiesoftheorganizationanditsleadership.47 DABShas“InformationRequest”formsforthoseseekinginformation.ThemainofficeofDABShasaninformationdesk,accessiblethroughanumberingsystemforthoseneedinginformation.ClosedcircuitTVcamerasareusedtomonitordifferentwaitingroomsandcustomerservicesdepartment.Accordingtotheunitmanager,thepurposeofthecameraswastoensurethatthecustomersarenotbeingtreatedunjustlyandunfairly.48ThroughoutKabul,thereareeightDABSinformationcentersandahelpdesktoprovideinformationtothecustomers.49Theresearcherscontactedthecallcenter(144)onanumberofoccasions,thewaitingtimedidnotexceedthreeminutesandthequestionswereansweredaccordingly.

DemandSideofInformationTheinterviewsandtheobservationscarriedoutforthisresearchsuggestthatpeople’sabilitytousetheirrightofaccesstoinformationisconstrainedbyagenerallackofawarenessabouttheirrightsasserviceusersandfavoritismpracticedinserviceprovisionbysomeDABSofficials.PoorPublicAwarenessTheaccesstosocialmediasuchasFacebookorLinkdInislimitedtoveryfewmembersofthegeneralpublic,eveninKabul.DABSdoeshaveaTVandradiooutreachcampaignthroughwhichitadvertisesitsservicesandprovidesinformationonaccesstoservices.Giventhelimitedaccessofthepopulationtosocialmediaandthehighrateofilliteracy,itiscrucialthatDABSintensifiesitsoutreacheffortsthroughTVandradio.ThemajorconstraintinusingTVandradiooutreachmoreextensivelyisthehighcost,however.50Lackofawarenessremainsthemainobstacletopeople’saccesstoinformation.5145VisitBreshnaat:http://www.dabs.af/pages/share/en.ThesitehasanEnglish,DariandPashtoversion(07-30-2015)

46Breshna’sLinkedInaccountdetailscanbefoundon:https://www.linkedin.com/company/da-afghanistan-breshna-sherkat(07-30-2015)

47VisitBreshna’sFacebookpageat:https://www.facebook.com/pages/Da-Afghanistan-Breshna-Sherkat-DABS/244090598970835(07-30-2015)

48KI-M-EL-1,theresearchersalsoobservedthecamerasandthemonitorsduringfieldvisits49KI-M-EL-150KI-M-EL-4,KI-M-EL-151KI-M-EL-4,KI-F-MoIC-1

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FavoritismandCorruptionHistoricallytherehavebeentwotypesoffavoritism,andrelatedcorruption,withingovernmentalentities.Thefirsttypeconsistsofindividualsusingacontactpersonorfreelancecommissionerstoobtainserviceinexchangeforagratuityorcommission.Thesecondtypeconsistsofemployeesoftheentitygivingtheirfriendsandfamilymemberspreferentialtreatment.ThefirsttypeofnepotismhasbeeneliminatedatDABSsincecustomersarenotallowedtosendotherstodemandserviceontheirbehalf.52Despitetherelativeabundanceofsupplyofelectricity,somefavoritismpersiststhoughthisbynomeansisaproblemspecifictoDABS.ThemainrecommendationbythoseengagedforthisresearchwasforDABStocreatemoreinformationcenterssothepublicwasclearerontheprocedurestofollowforreceivingservice.53

InformalProcedures

Aswithaccesstoinformationonhealthservices,themostcommonsourcesforinformationonaccesstoelectricityservicesarethewordofmouth,trialanderrorbytheinformationseekers,andexperiencesfromownorothers’pastexperiences.

52KI-M-EL-153KI-MoIC-1,FGD-M-EL-Clients

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ConclusionandRecommendations

ItistoosoontoconcludewhetherornottheimplementationoftheAccesstoInformationLawhasbeenasuccess.However,thisreportfindsthatthemainchallengeinimplementingtheLawisonefacedbyallotherformsoflegislationinAfghanistan.Thatis,thisLawwillbeoflittleornoconsequenceinpracticalandimmediatetermswithouteffectiveimplementation.Afghanistan’sAccesstoInformationLawcameintoeffectinlate2014.AswithmostlawsenactedinAfghanistansince2001,thecontentsofthislawcorrespondsufficientlytoprovisionsinlegislationbyothercountriesonright/accesstoinformation.ThefactthatAfghanistancompareswithSwitzerlandasfarasthecontentsofitsAccesstoInformationLawconfirmsthis.Theproblem,associatedwithallformsoflegislationinAfghanistan,isthatthisLawisoflittleornoconsequenceinpracticaltermswithoutadequateresourcestoimplementit.WithsupplementarymeasuressuchassettinguptheComplaintsCommitteethisLawcallsfor,cross-referencingwithotherrelatedlegislation,passageoftime,andpoliticalstabilitythelikelihoodwillincreaseforthepracticalutilityoftheAccesstoInformationLaw.Aswithmostotherfundamentallegislation,muchcouldbelearnedbyAfghanistanfromtheexperienceofothercountriessuchastheUnitedStates,havinghadtheFreedomofInformationActforalmostfivedecades,thepracticalimplicationsoftheAct,andthemanyamendmentsmadetotheActinresponsetolearningfromtheimplementationoftheAct.Similarly,India’srichtrackrecordofimplementingsimilarlegislationcouldbeutilizedforimplementingAfghanistan’sAccesstoInformationLawandthefutureamendmentsandrevisionsofthisLaw.Giventhenumberoflessdevelopedcountrywithformallegislationontheright/accesstoinformation,theimportanceoftransparencyininformationflowinallmodelsofgoodgovernance,andthedebateonhowthestateshouldhandleandmanageinformationonitscitizens,thedebateontheroleandutilityofformallegislationontheright/accesstoinformationislikelytocontinueandintensify.Afghanistan,despitethepoliticalinstability,isnoexceptiontothelistofcountriesthatwillhavethisdebateintheyearstocome.Thefocusofaccess/righttoinformationlegislationinthecasesreviewedforthispaperismostlyonwhatthemediacanandcannotaskforfromthegovernmentandwhatthegovernmentshouldandshouldnotprovidetoensuretheprotectionofothercitizensandtheinterestsofthenationasawhole.Someaccess/righttoinformationlegislation,suchasthatbySweden,givesequalweighttoavailabilityandsecrecyininformationflows,forexample.Alllegislationfromaroundtheworldhasspecificsectionswherelimitationsontheflowofinformationfromthestatetocitizensarespelledout.Unlesstheinformationbeingrequestedunderminestherightsofothercitizensortheinterestsofthestate,alllegislationonaccess/righttoinformationisclearontherightofthepublictoaskformosttypesofinformationandthestateauthoritiesatalllevelshavingthelegalobligationtoprovideit.Similarly,allprovisionforrecoursebythemembersofthepublicincaseswheretheirrighttoinformationhasnotbeengrantedbyanystateorstate-relatedauthority.Forexample,theTurkishRighttoInformationLawhastwospecificarticles,Article4and5,ontherighttoinformationandthe“obligationtoprovideinformation”.

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TherecourseprovisionofAfghanistan’sAccesstoInformationLaw,throughtheComplaintsCommittee,hasasignificantpotentialroletoplayinincreasingthetransparencyandaccountabilityofgovernmentalentitieschargedwithserviceprovisionforthepublic.Assuch,theLawcouldbeusedasaneffectiveinstrumenttoeliminatepettycorruptioninservicedelivery.Byfar,themostactivedevelopingcountrywithlegislationon,andassessmentsof,right/accesstoinformationlawisIndia.TheconstraintsidentifiedbyIndiainimplementingthelegislationthroughthevariousassessmentsbystateandnon-stateactorsaresimilartotheconstraintsidentifiedinthispilotstudyofAfghanistan’slegislation.Forexample,inresponsetothelackofpublicawarenessonIndia’sRighttoInformationlaw,somestatesstartedamassawarenessraisingprogramandchangedtheeducationalcurriculainprimary,secondary,post-secondary,andliteracyeducationtofamiliarizestudentswithlegalprovisionsontheirrightstoinformation.Otherstatesintroduceddedicatedinfrastructure,suchasatollfreephonelinetorequestforinformationormadeprovisionsfortheuseoftextingbymobilephonesfromthepublictofollowuponrequests.Thislattermeasurewasparticularlypracticalformembersofruralcommunitieswithminimalphysicalaccesstogovernmentalentitiesandstructures.IntheAfghancontext,asinothercontexts,corruptionandnepotismaremajorobstaclestoaccesstoinformation.ThecaseofIndiaillustratesthattwokeyelementsinsuccessfulinstitutionalizationofaccess/righttoinformationlegislationarepoliticalstability(andpoliticalwill)andavailabilityofresourcestoprovideadequateandreliableservices.WhenthereisscarcityofresourcestoprovideadequateandreliableserviceasisthecasewithAfghanistan,compoundedbyinstabilityandalackofpoliticalwilland/orabilitytoimplementlegislation,thereisfertilegroundforcorruptionandnepotisminserviceprovision.InAfghanistan,continuedconflict,insufficientandinadequateinfrastructureandresources,widespreadinstitutionalauthoritarianism,andcorruptionarelikelytoremainasmajorchallengesforaccesstoandpracticingtherighttoinformationformanyyearstocome.Themostsignificantfindingfromthispilotassessmentisthatright/accesstoinformationbythepublicisunderminedbythetwomainfactorsofthepubliclackingawarenessofitsrightandthoseinauthority,especiallyinhealthsector,showingatendencytoactwithhostilitytowardmembersofthepublicseekinghelp.Therecommendationsofthisassessmentare,necessarily,quitegeneralandintendedtodrawattentiontothepreparatoryworkthatwillneedtobedoneasamajorpartoftheeffortstoimplementandrevisetheAccesstoInformationLawinAfghanistan.

Recommendations

• AnawarenessraisingcampaignwillneedtobeinitiatedbythegovernmentandcivilsocietyorganizationsontheAccesstoInformationLawanditsbenefitsforthepublicandstateinterests.

• Particularattentionwillneedtobepaidtoawarenessraisingamongtheilliterateandparticularlyinrural/remoteareas.

• Incorporateawarenessoftheright/accesstoinformationlegislationineducationcurriculafromprimarytopost-secondaryeducationaswellasinliteracyprograms.

• Asmuchaspossible,setupspecific,clearlyidentifiableinformationpointsorsectionsingovernmentalorganizationswiththemaintaskofassistingthepublicinitsrequestsforinformation.

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• Ensurethatgovernmentandsemi-governmententitieshavespecificprovisionsforaccesstoinformationbythepublicintheirstrategies,asaspecificpolicy,oraclearsectioninthecommunicationpolicy.

• Formalizethecitizens’righttoapproachpublicandstate-relatedofficialsandentitiesforinformationwithouthavingaministerialauthorizationletter,thecurrentpreconditionforreleaseofinformationbyallgovernment,semi-government,andsomenon-governmentorganizationsandentities.

• Makeinnovativeusesofdigitaltechnologysuchuseofmobileorsmartphonesandhotlinestoencouragethepublictoexerciseitsright.

• Traingovernmentandsemi-governmentofficialsoftheirresponsibilities,rights,andtheconsequencesoffailingtooperateaccordingtotheobligationssetoutintheAccesstoInformationLaw.

• InfuturereformsoftheAccesstoInformationLaw,attemptsshouldbemadetodefinetheboundariesofthelawmorepreciselyonwhatconstitutesnationalinterestorpersonalfreedominthecontextofaccesstoinformation.

• TheGovernmentandtheParliamentshouldapproveamendmentstotheAccesstoInformationLawsothattheLawmeetsinternationalbestpractices

• TheGovernmentandParliamentmustensurethattherearecleardefinitionsandlimitstoinformationprotectedasstatesecrets.

• TheGovernmentshouldcompletetheprocessofestablishingtheATICommissionandprovideadequatepoliticalandfinancialsupportsothattheATICommissioncanfulfillitsmission.

• TheGovernmentshouldestablishmechanismstopromoteproactivedisclosureatalllevelsofgovernment(includingpenaltiesfornon-disclosure),toensureeasyaccesstoinformationforthegeneralpublic.

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Appendix1:ListofInterviewees

Code TypeofInterview

Entity Position

KI-M-EL-1 Individual DABS CustomerServiceManager

KI-M-EL-2 Individual DABSDehmazangCenter

CustomerServiceFieldOfficer

KI-M-EL-3 Individual DABSTaimaniCenter

CustomerServiceFieldOfficer

KI-M-EL-4 Individual DABSAhmadShahBabaCenter

CustomerServiceFieldOfficer

KI-M-EL-5 Individual DABSKhurkhunaCenter

CustomerServiceFieldOfficer

FGD-M-EL-Clients

MaleFocusGroup

DABSKhurkhunaCenter

CustomerServiceFieldOfficer

KI-M-MP-1 Individual MP ChairmanoftheCommissionforCommunicationandConnectivity

KI-M-JOU-1 Individual AfghanistanJournalistsCouncil

Director

KI-F-MoIC-1 Individual BakhtarInformationAgency–MinistryofInformation&Culture

DeputyDirector

KI-M-MoPH-1 Individual HealthPromotionDepartmentMinistryofHealth

Director

KI-F-MoPH-2 Individual Rabi’aBalkhiHospital DeputyDirector

KI-M-MoPH-3 Individual JamhoryatHospital HeadDoctor

KI-M-MoPH-4 Individual AntaniHospital HeadDoctor

KI-M-MoPH-5 Individual IndiraGandhiHospital HeadDoctor

FGD-F-H-PA FemaleFocusGroup

JamhoryatHospital HeadDoctor

FGD-M-H-PA MaleFocusGroup

JamhoryatHospital HeadDoctor

KI-F-MP-2 Individual MP ChairmanoftheCommitteeofPublicWelfare

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KI-M-JOU-2 Individual NAI:SupportingopenmediainAfghanistan

Head

KI-M-ACSFo-1 Individual AfghanCivilSocietyForumOrganization

ExecutiveDirector

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Appendix2:GuidingQuestions

FocusGroupDiscussions:1. Whataretheformalproceduresofgainingaccesstoinformationabouttheprovidedservices?2. Doyouknowwhatrightsdoyouhavewithregardstoaccesstoinformation?Pleaseexplain.3. Whatexperiencedoyouorthegeneralpublichavewithregardstogainingaccessto

information?4. Whatarethestrengthsandweaknessesoftheprocessofprovidinginformationtopublic?5. Whatnewstepscouldbetakentoenhancepeople’saccesstoinformation?6. Whatchallengesdothepeoplefacewhenseekingaccesstoinformation?7. Pleasegiveusyouropinionaboutaccesstoinformation.8. Whatactionsneedtotakeplacetoenhancetransparencyandaccountabilitywithintheprocess

ofaccesstoinformation?9. Whatactionscouldthegovernmenttaketoenhanceandimprovecitizen’saccessto

information?

KeyInformantInterviews:1. Whataretheformalproceduresofgainingaccesstoinformationabouttheprovidedservices?2. Whataretheformalproceduresofgainingaccesstoinformationingeneral?3. Whatrightsdocitizen’shavewithregardstoaccesstoinformation?Pleaseexplain.4. Towhatextenthavecitizensutilizedtheirrightofaccesstoinformation?5. Whatexperiencedoyouorthegeneralpublichavewithregardstogainingaccessto

information?6. Whatarethestrengthsandweaknessesoftheprocessofprovidinginformationtopublic?7. Whatcouldbeapotentialsolutiontotheweaknessesintheprocessofprovidingcitizensaccess

toinformation?8. Whatchallengesdothepeoplefacewhenseekingaccesstoinformation?9. Whatisyourorgeneralpublic’sopinionaboutaccesstoinformation?10. Whatactionsneedtotakeplacetoenhancetransparencyandaccountabilitywithintheprocess

ofaccesstoinformation?11. Whatactionscouldthegovernmenttaketoenhanceandimprovecitizen’saccessto

information?

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Appendix3:PicturesfromtheHospitals

Figure1:EnglishBannerDescribingRightsofPatientsinachildren’shospitalinKabul

Figure2:DysfunctionalTVsintheWomen’sHospital

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Figure3:InformationSignsattheGeneralHospital

Fromlefttorightstartingupleft:(1)RightsofpatientswritteninDariandhanginginthemainhall.(2)Additionalinformationaboutthehospitalforpatientsandvisitors.(3)Informingpatientsandvisitorsofrisksofinfections.(4)Complaintsboxintendedforpatientsandvisitors.