Source: http://www.rti-rating.org/view_country/?country_name=Estonia
Timestamp: 2017-03-24 00:06:56
Document Index: 127263433

Matched Legal Cases: ['§ 4', '§ 4', '§ 5', '§ 5', '§ 14', '§ 13', '§ 13', '§ 9', '§ 15', '§ 14', '§ 4', '§ 18', '§ 19', '§ 4', '§ 4', '§ 26', '§ 35', '§ 38', '§ 38', '§ 40', '§ 14', '§ 38', '§ 46', '§ 44', '§ 46', '§ 44', '§ 54', '§ 45', '§ 52', '§ 50', '§ 46', '§ 51', '§ 54', '§ 10', '§ 55', '§ 58', '§ 11', '§ 54']

EstoniaName of law : Public Information Act First adopted : 2000RTI Rating last updated : 23 June 2016
Right of Access	6	5 Scope	30	20 Requesting procedures	30 24	Exceptions	30 22	Appeals	30 16 Sanctions	8	1 Promotional measures	16	8 TOTAL	150	96 Right of Access Indicator Description Scoring instructions MAX score Findings Points Article Comments
Article 44 of the Constitution of the Republic of Estonia states:
\"(1) Everyone has the right to freely obtain information disseminated for public use.
(2) All state agencies, local governments, and their officials have a duty to provide information about their activities, pursuant to procedure provided by law, to an Estonian citizen at his or her request, except information the disclosure of which is prohibited by law, and information intended exclusively for internal use.
(3)An Estonian citizen has the right to access information about himself or herself held in state agencies and local governments and in state and local government archives, pursuant to procedure provided by law. This right may be restricted pursuant to law to protect the rights and freedoms of others or the confidentiality of a child\'s parentage, and in the interests of preventing a criminal offence, apprehending a criminal offender, or ascertaining the truth in a criminal proceeding.
(4)Citizens of foreign states and stateless persons who are in Estonia have the rights specified in paragraphs two and three of this section equally with Estonian citizens, unless otherwise provided by law.\"
Constitution of the Republic of Estonia (English version):
http://www.president.ee/en/republic-of-estonia/the-constitution/
§ 4. Principles of granting access to public information:
\"(1) In order to ensure democracy, to enable public interest to be met and to enable all persons to exercise
their rights and freedoms and perform their obligations, holders of information are required to ensure
access to the information in their possession under the conditions and pursuant to the procedure provided
by law.\"
Is not a principle of publicity but establishes the obligation of public authorities to ensure access.
\"The purpose of this Act is to ensure that the public and every person has the opportunity to access
information intended for public use, based on the principles of a democratic and social rule of law and an
open society, and to create opportunities for the public to monitor the performance of public duties.\"
YES § 4. Principles of granting access to public information
\"(2) Access to information shall be ensured for every person in the quickest and easiest manner possible.\"
\"(1) Public information (hereinafter information) is information which is recorded and documented in any
manner and on any medium and which is obtained or created upon performance of public duties provided
by law or legislation issued on the basis thereof.\"
YES § 5. Holders of information
\"(1) The following are holders of information:
3) legal persons in private law and natural persons under the conditions provided for in subsection (2) of
(2) The obligations of holders of information extend to legal persons in private law and natural persons if
the persons perform public duties pursuant to law, administrative legislation or contracts, including the
provision of educational, health care, social or other public services, – with regard to information
concerning the performance of their duties.\"
YES § 5. Holders of information:
\"<...> 3) The following are deemed to be equal to holders of information:
2) sole proprietors, non-profit associations, foundations and companies – with regard to information concerning the use of funds allocated from the state or a local government budget for the performance of public duties or as support.\"
NO Reasons are not mentioned in the law.
14 Requesters are only required to provide the details necessary for identifying and delivering the information (i.e. some form of address for delivery).Score Max 2 points and deduct if requesters are required to give any of the following: ID number, telephone number, residential address, etc.2 YES § 14. Requirements applicable to requests for information
\"(1) A request for information shall set out the following information orally or in writing:
2) the name of the legal person or agency in the case of a request for information made on behalf of an
agency or legal person;
3) the details of the person making the request for information (postal or electronic mail address, or fax or
telephone number), through which the holder of information could release the information or contact the
person making the request for information;
4) the content of the information or the type, name and content of the document requested, or the
requisite information on the document known to the person making the request for information;
5) the manner of complying with the request for information.\"
15 There are clear and relatively simple procedures for making requests. Requests may be submitted by any means of communication, with no requirement to use official forms or to state that the information is being requested under the access to information law.Max 2 points. Considerations include that there is no requirement to state that the request is under the RTI law, nor to use an official form, nor to identify the document being sought. 2 YES § 13. Manners of making requests for information
\"A person making a request for information shall make the request for information either:
2) in writing, delivering a request for information personally or communicating it by post, fax or electronic
mail.\"
16 Public officials are required provide assistance to help requesters formulate their requests, or to contact and assist requesters where requests that have been made are vague, unduly broad or otherwise need clarification. Score 1 point for help in formulation and 1 point for clarification procedures2 YES § 13. Manners of making requests for information
17 Public officials are required to provide assistance to requesters who require it because of special needs, for example because they are illiterate or disabled.Score Yes=2 point, No=02 YES § 9. Obligations of holders of information
\"(2) Upon granting access to information, a holder of information is required:
<...>5) to assist persons making requests for information; <...>
\"(1) Holders of information are required to clearly explain the procedure for and the conditions and
manners of access to information to persons making requests for information.
(2) Officials and employees of holders of information are required to assist persons making requests for
information in every way during the making of requests for information and the identification of the
information necessary for the persons making requests for information, the location of the information and
the most suitable manners of access thereto.\"
19 Clear and appropriate procedures are in place for situations where the authority to which a request is directed does not have the requested information. This includes an obligation to inform the requester that the information is not held and to refer the requester to another institution or to transfer the request where the public authority knows where the information is held.Score: 1 point for information not held, 1 for referrals or 2 for transfers2 YES § 15.(3) \"An official or employee of a holder of information who is not competent to comply with a request for
information is required promptly to send the person making the request for information to an official or
employee who has the corresponding competence, or promptly to communicate the request for
information in writing to the specified official or employee.\"
20 Public authorities are required to comply with requesters’ preferences regarding how they access information, subject only to clear and limited overrides (e.g. to protect a record).Score: 2 points for Yes, only 1 point if some limitations2 NO § 14. Requirements applicable to requests for information
<...> 5) the manner of complying with the request for information.\"
The requesters can say how they want to have access to the information but the law does not establish the obligation of the public authority to obey such preference.
21 Public authorities are required to respond to requests as soon as possible.Score: No=0, Yes=2 points 2 YES § 4. Principles of granting access to public information
22 There are clear and reasonable maximum timelines (20 working days or less) for responding to requests, regardless of the manner of satisfying the request (including through publication).Score: 1 point for timeframes of 20 working days (or 1 month, 30 days or 4 weeks). Score 2 points for 10 working days (or 15 days, or two weeks) or less.2 YES § 18. Terms for compliance with requests for information and calculation of terms for processing
\"(1) A request for information shall be complied with promptly, but not later than within five working days.
(2) If a request for information cannot be complied with due to the insufficiency of the information
submitted by the person making the request for information, the holder of information shall notify the
person making the request for information thereof within five working days in order to specify the request
(3) The terms for processing requests for information provided for in this Act shall be calculated as of the
working day following registration of the requests for information.\"
23 There are clear limits on timeline extensions (20 working days or less), including a requirement that requesters be notified and provided with the reasons for the extension.---2 YES § 19. Extension of terms for compliance with requests for information
\"If a holder of information needs to specify a request for information or if identification of the information
is time-consuming, the holder of information may extend the term for compliance with the request for
information for up to fifteen working days. The holder of information shall notify the person making the
request for information of extension of the term together with the reasons therefor within five working
days.\"
24 It is free to file requests.Score: No=0, Yes=2 points2 YES § 4. Principles of granting access to public information \"(4) Access to information shall be granted without charge unless payment for the direct expenses relating
to the release of the information is prescribed by law.\"
\"(1) A holder of information shall cover the expenses relating to compliance with requests for information
unless otherwise prescribed by law.
(2) A person making a request for information shall pay up to 3 kroons per page for copies on paper
starting from the twenty-first page, unless a state fee for the release of information is prescribed by law.
(3) Holders of information shall cover the expenses relating to compliance with requests for information
made by state or local government agencies.\"
25 There are clear rules relating to access fees, which are set centrally, rather than being determined by individual public authorities. These include a requirement that fees be limited to the cost of reproducing and sending the information (so that inspection of documents and electronic copies are free) and a certain initial number of pages (at least 20) are provided for free. Score 1 point for fees being limited to reproduction and delivery costs and set centrally, 1 point for at least 20 pages free of charge or for fees being optional2 YES § 4. Principles of granting access to public information \"(4) Access to information shall be granted without charge unless payment for the direct expenses relating to the release of the information is prescribed by law.
(4 1) A holder of information must publish the conditions for accessing the information and the amount to be charged for access and, if a person making a request for information so requires, provide explanations concerning the cost-orientation of the charges.\"
made by state or local government agencies.
(4) Any income received for supplying information for re-use must not exceed the cost of supplying that information for re-use, to which a reasonable depreciation cost may be added which is intended to ensure the sustainability of the service.\"
26 There are fee waivers for impecunious requesters ---2 YES § 26. Exemption from covering expenses
\"A holder of information may exempt a person making a request for information from covering expenses
provided for in subsection 25 (2) of this Act if:
3) the person making the request for information needs the information in order to exercise the rights and
freedoms of the person or to perform obligations and if the person making the request does not have the
financial capacity to cover the expenses.\"
28 The standards in the RTI Law trump restrictions on information disclosure (secrecy provisions) in other legislation to the extent of any conflict.Score 4 points for a resounding "yes" and 1/2/3 points if only for some classes of information or for some exceptions. If the state secrets law is not trumped by the RTI law max score is 2 points. 4 NO Petitions Act (RT I 1994, 51, 857; 1996, 49, 953; 2000, 49, 304; 92, 597; 2001, 58, 354) if responding
requires the analysis and synthesis of the recorded information or the collection and documentation of
4) to restrictions on access to information and to special conditions for, the procedure for and methods of
access if these are otherwise provided for in specific Acts or international agreements.
(3) The provisions of the Administrative Procedure Act (RT I 2001, 58, 354; 2002, 53, 336; 61, 375;
Other laws prevale to RTI law.
29 The exceptions to the right of access are consistent with international standards. Permissible exceptions are: national security; international relations; public health and safety; the prevention, investigation and prosecution of legal wrongs; privacy; legitimate commercial and other economic interests; management of the economy; fair administration of justice and legal advice privilege; conservation of the environment; and legitimate policy making and other operations of public authorities. It is also permissible to refer requesters to information which is already publicly available, for example online or in published form.Score 10 points and then deduct 1 point for each exception which either (a) falls outside of this list and/or (b) is more broadly framed10 Partially § 35. Grounds for classification of information as internal
\"(1) A holder of information is required to classify the following as information intended for internal use:
[RT I 2007, 12, 66 - entry into force 01.01.2008]\"
Public safety is not mentioned.
30 A harm test applies to all exceptions, so that it is only where disclosure poses a risk of actual harm to a protected interest that it may be refused. Score 4 points and then deduct 1 point for each exception which is not subject to the harm test 4 YES § 38. Access to information classified as internal only
\"(1) A holder of information shall disclose information concerning facts which arouse public interest and
which are related to an offence or accident before the final clarification of the circumstances of the
offence or accident to an extent which does not hinder the investigation or supervision or clarification of
the reasons for the accident. The competent official who organises the investigation or supervision or who
clarifies the circumstances of the accident shall decide on the extent of disclosure of such information.\"
31 There is a mandatory public interest override so that information must be disclosed where this is in the overall public interest, even if this may harm a protected interest. There are ‘hard’ overrides (which apply absolutely), for example for information about human rights, corruption or crimes against humanity.Consider whether the override is subject to overarching limitations, whether it applies to only some exceptions, and whether it is mandatory.4 YES § 38. Access to information classified as internal only
32 Information must be released as soon as an exception ceases to apply (for example, for after a contract tender process decision has been taken). The law contains a clause stating that exceptions to protect public interests do not apply to information which is over 20 years old.Score 1 point for each2 YES § 40. Terms of restrictions on access
\"(1) A restriction on access to information intended for internal use applies as of the preparation or receipt of the documents for as long as necessary or until the arrival of the event, but not for longer than five years. The head of an agency may extend the term by up to five years if the reason for establishment of the restriction on access continues to exist.
(3) A restriction on access to information classified as internal which contains private personal data applies for 75 years as of the receipt or documentation thereof or for 30 years as of the death of the person or, if it is impossible to establish death, for 110 years as of the birth of the person.\"
33 Clear and appropriate procedures are in place for consulting with third parties who provided information which is the subject of a request on a confidential basis. Public authorities shall take into account any objections by third parties when considering requests for information, but third parties do not have veto power over the release of information.Score: 1 point for consultation, 1 further point if original time frames must be respected and the law allows for expedited appeals.2 Partially § 14. Requirements applicable to requests for information
\"(2)If a person requests information which contains restricted personal data concerning him or her or third persons, the holder of information shall identify the person making the request for information. If a person requests restricted private personal data concerning a third person, he or she shall inform the holder of information of the basis and purpose of accessing the information.\"
34 There is a severability clause so that where only part of a record is covered by an exception the remainder must be disclosed. Score 1 point if yes but sometimes can be refused (eg: if deletions render meaningless the document) and 2 points if partial access must always be granted2 YES § 38. Access to information classified as internal only
\"<...>(2) If the grant of access to information may cause the disclosure of restricted information, it shall be
ensured that only the part of the information or document to which restrictions on access do not apply
may be accessed.\"
36 The law offers an internal appeal which is simple, free of charge and completed within clear timelines (20 working days or less).Score 2 points if the internal appeal fulfills these criteria, 1 point if an appeal is offered that does not fulfill this criteria, 0 for no internal appeals.2 YES § 46. Filing of challenges and actions concerning refusal to comply with request for information or
unsatisfactory compliance with request for information
\"A person whose rights provided for in this Act are violated may file a challenge with a supervisory body
specified in § 44 of this Act or an action with an administrative court either personally or through a
representative.\"
37 Requesters have the right to lodge an (external) appeal with an independent administrative oversight body (e.g. an information commission or ombudsman). 1 for partial, 2 for yes2 YES § 46. Filing of challenges and actions concerning refusal to comply with request for information or unsatisfactory compliance with request for information
\"A person whose rights provided for in this Act are violated may file a challenge with a supervisory body specified in § 44 of this Act or an action with an administrative court either personally or through a representative.\"
[RT I 2002, 61, 375 - entry into force 01.08.2002] 38 The member(s) of the oversight body are appointed in a manner that is protected against political interference and have security of tenure so they are protected against arbitrary dismissal (procedurally/substantively) once appointed.Score: 1 point for appointment procedure, 1 point for security of tenure2 NO Personal Data Protection Act1
36. Appointment and release of head of Data Protection Inspectorate from office
(1) The Government of the Republic shall appoint the head of Data Protection Inspectorate to office for a term of five years at the proposal of the Minister of Justice after having heard the opinion of the Constitutional Committee of the Riigikogu2.
The head of Data Protection Inspectorate is appointed by the government
39 The oversight body reports to and has its budget approved by the parliament, or other effective mechanisms are in place to protect its financial independence.Score 1 point for reports to parliament, 1 point for budget approved by parliament2 Partially § 54. Report of Data Protection Inspectorate on compliance with this Act
\"(1) The Data Protection Inspectorate shall submit a report on compliance, during the preceding year, with this Act to the Constitutional Committee of the Riigikogu and to the Legal Chancellor by 1 April each year.
(3) Reports shall be published on the website of the Data Protection Inspectorate.\"
No mention to the budget.
41 The independent oversight body has the necessary mandate and power to perform its functions, including to review classified documents and inspect the premises of public bodies.Score 1 point for reviewing classified documents, 1 point for inspection powers2 YES § 45. Supervisory competence of Data Protection Inspectorate
\"(1) The Data Protection Inspectorate shall exercise state supervision over holders of information during compliance with requests for information and the disclosure of information.
[RT I, 19.12.2012, 2 - entry into force 29.12.2012]\"
(2) The Data Protection Inspectorate shall notify the person filing the challenge, the holder of information and the superior body or agency of the holder of information of the decision on the challenge. The supervision results shall be disclosed on the website of the Data Protection Inspectorate.
[RT I 2002, 63, 387 - entry into force 01.09.2002] 42 The decisions of the independent oversight body are binding. Score N=0, Y=2 points2 YES § 52. Compliance with precepts of Data Protection Inspectorate
(2) [Repealed - RT I 2002, 61, 375 - entry into force 01.08.2002] 43 In deciding an appeal, the independent oversight body has the power to order appropriate remedies for the requester, including the declassification of information. 1 for partial, 2 for fully2 Partially § 50. Rights of Data Protection Inspectorate
\"(1) Competent officials of the Data Protection Inspectorate who exercise supervision have the right to:
(2) The Data Protection Inspectorate shall notify the person filing the challenge, the holder of information and the superior body or agency of the holder of information of the decision on the challenge. The supervision results shall be disclosed on the website of the Data Protection Inspectorate.\"
[RT I 2002, 63, 387 - entry into force 01.09.2002] The power of declassifiying information is not mentioned
44 Requesters have the right to lodge a judicial appeal.1 for partially, 2 for fully.2 YES § 46.Filing of challenges and actions concerning refusal to comply with request for information or
46 The grounds for appeal to the oversight body (where applicable, or to the judiciary if no such body exists) are broad (including not only refusals to provide information but also refusals to provide information in the form requested, administrative silence and other breach of timelines, charging excessive fees, etc.).Score 1 point for appealing refusals, additional points for appealing other violations.4 YES § 51. Precept of Data Protection Inspectorate
\"(1) The Data Protection Inspectorate may issue a precept which requires a holder of information to bring its activities into accordance with law if the Inspectorate finds that the holder of information:
9) has released information to which restrictions on access are established pursuant to this Act.\"
50 Sanctions may be imposed on those who wilfully act to undermine the right to information, including through the unauthorised destruction of information.Score 1 point for sanctions for underming right, 1 point for destruction of documents 2 Partially § 54.1 Violation of requirements for disclosure and release of public information
\"(1) Knowing release of incorrect public information or knowing disclosure or release of information intended for internal use or failure to comply with a precept of the Data Protection Inspectorate
(2) The provisions of the General Part of the Penal Code and the Code of Misdemeanour Procedure apply to the misdemeanours provided for in this section.
[RT I 2003, 26, 158 - entry into force 01.10.2003]\"
54 Public authorities are required to appoint dedicated officials (information officers) or units with a responsibility for ensuring that they comply with their information disclosure obligations.Score Y/N, Y=2 points2 YES § 10. Organisation of access to information by holders of information
\"<...>(2) A holder of information may, using an operations procedure or other documents, designate the structural units and officials or employees responsible for complying with requests for information and disclosing information, and the procedure for the internal processing of requests for information or of information subject to disclosure. <...>\"
55 A central body, such as an information commission(er) or government department, is given overall responsibility for promoting the right to information. Score Y/N, Y=2 points2 Partially § 55. Access to public computer network in public libraries
\"The state and local governments shall ensure that there is the opportunity to access public information
through the data communication network in public libraries by 2002.\"
57 A system is in place whereby minimum standards regarding the management of records are set and applied. Score Y/N, Y=2 points2 Partially § 58. Bringing of records management procedures into accordance with this Act
\"(1) The Government of the Republic shall establish the bases for the records management procedures of state and local government agencies and legal persons in public law by 1 March 2001.
(2) Holders of information shall bring their records management procedures into accordance with this Act by 1 June 2001.\"
58 Public authorities are required to create and update lists or registers of the documents in their possession, and to make these public. Score Y/N, Y=2 points2 YES § 11. Document register of agency
61 A central body, such as an information commission(er) or government department, has an obligation to present a consolidated report to the legislature on implementation of the law. Score Y/N, Y=2 points2 YES § 54. \"Report of Data Protection Inspectorate on compliance with this Act
(3) The Data Protection Inspectorate is the extra-judicial body which conducts proceedings in matters of misdemeanours provided for in this section.\"