Queensland: Right to Information Act 2009 (Qld)

Right to Information Act 2009 An Act about rights to government and other information Preamble Parliament's reasons for enacting this Act are— 1 Parliament recognises that in a free and democratic society— (a) there should be open discussion of public affairs; and (b) information in the government's possession or under the government's control is a public resource; and (c) the community should be kept informed of government's operations, including, in particular, the rules and practice followed by government in its dealings with members of the community; and (d) openness in government enhances the accountability of government; and (e) openness in government increases the participation of members of the community in democratic processes leading to better informed decision-making; and (f) right to information legislation contributes to a healthier representative, democratic government and enhances its practice; and (g) right to information legislation improves public administration and the quality of government decision-making; and (h) right to information legislation is only 1 of a number of measures that should be adopted by government to increase the flow of information in the government's possession or under the government's control to the community. 2 The Government is proposing a new approach to access to information. Government information will be released administratively as a matter of course, unless there is a good reason not to, with applications under this Act being necessary only as a last resort. 3 It is Parliament's intention to emphasise and promote the right to government information. It is also Parliament's intention to provide a right of access to information in the government's possession or under the government's control unless, on balance, it is contrary to the public interest to provide the information. This Act reflects Parliament's opinion about making information available and the public interest. Chapter 1 Preliminary Part 1 Introductory 1 Short title This Act may be cited as the Right to Information Act 2009. 2 Commencement This Act commences on a day to be fixed by proclamation. 3 Object of Act (1) The primary object of this Act is to give a right of access to information in the government's possession or under the government's control unless, on balance, it is contrary to the public interest to give the access. (2) The Act must be applied and interpreted to further the primary object. 4 Act not intended to prevent other publication or access (1) This Act is not intended to prevent or discourage the publication of information or the giving of access to documents otherwise than under this Act if the publication or giving of access can properly be done or is permitted or required to be done by law. (2) To remove any doubt, it is declared that subsection (1) applies to— (a) the giving of access to documents to which this Act does not apply, exempt documents and contrary to public interest documents; and (b) the publication of information and the giving of access to documents by an entity to which this Act does not apply or to which this Act does not apply in relation to a particular function. 5 Relationship with other Acts requiring publication or access Without limiting section 4, this Act does not affect the operation of another Act or administrative scheme that— (a) requires information concerning documents in the possession, or under the control, of government to be made available to members of the community; or (b) enables a member of the community to access documents in the possession, or under the control, of government; or (c) requires the publication of information concerning government operations; whether or not on payment of a charge. 6 Relationship with other Acts prohibiting disclosure of information This Act overrides the provisions of other Acts prohibiting the disclosure of information (however described). Notes— 1 The Parliament considers that, unless the information is personal information of the applicant, information the disclosure of which is prohibited under a provision of an Act mentioned in schedule 3, section 12 is information the disclosure of which would, on balance, be contrary to the public interest—see section 44(2)(a) and schedule 3, section 12. 2 This information is called exempt information and, under section 47(3)(a), an agency or Minister may refuse access to a document to the extent the document comprises exempt information. 3 However, an agency or Minister may give access to a document even if this Act provides that access to the document may be refused—see section 48(3). 7 Relationship with other Acts regulating disposal of information This Act does not affect the provisions of other Acts regulating the disposal of information (however described). 8 Relationship with Information Privacy Act (1) The Information Privacy Act also provides for applications for access to documents of an agency or Minister but only to the extent the documents contain the applicants' personal information. (2) The Information Privacy Act also provides for applications to amend documents to the extent the documents contain the applicants' personal information. (3) If, on its face, an access application purportedly made under the Information Privacy Act should have been made under this Act because the application is for access to a document other than to the extent it contains the applicant's personal information, the Information Privacy Act, section 54 applies. Notes— 1 Under the Information Privacy Act, section 54— • the applicant is given an opportunity to change the application so it is an application that can be made under the Information Privacy Act or to pay the application fee payable under this Act and have the application dealt with under this Act; or • the application may continue to be dealt with under the Information Privacy Act but is potentially subject to a decision under section 32(1)(b)(i), as applied by the Information Privacy Act, that the application is outside the Act's scope. 2 If the applicant pays the application fee payable under this Act, the applicant is taken to have made the application under this Act on the date of the payment—see the Information Privacy Act, section 54(4). 3 To facilitate this situation, the approved form for an access application under this Act is the same as the approved form for an access application under the Information Privacy Act and agencies will make appropriate administrative arrangements. 9 Act binds State This Act binds the State. Part 2 Interpretation 10 Definitions The dictionary in schedule 5 defines particular words used in this Act. 11 Meaning of document to which this Act does not apply In this Act, a document to which this Act does not apply means a document mentioned in schedule 1. 12 Meaning of document of an agency In this Act, document, of an agency, means a document, other than a document to which this Act does not apply, in the possession, or under the control, of the agency whether brought into existence or received in the agency, and includes— (a) a document to which the agency is entitled to access; and (b) a document in the possession, or under the control, of an officer of the agency in the officer's official capacity. 13 Meaning of document of a Minister In this Act, document, of a Minister, means a document, other than a document of an agency or a document to which this Act does not apply, in the possession, or under the control, of the Minister that relates to the affairs of an agency, and includes— (a) a document to which the Minister is entitled to access; and (b) a document in the possession, or under the control, of a member of the staff of, or a consultant to, the Minister in the person's capacity as member or consultant. Note— Minister is defined to include an Assistant Minister—see schedule 5. 14 Meaning of agency (1) In this Act, an agency means— (a) a department; or (b) a local government; or (c) a public authority; or (d) a government owned corporation; or (e) a subsidiary of a government owned corporation. (2) However, in this Act, agency does not include an entity to which this Act does not apply. Note— See section 17 for entities to which this Act does not apply. Also, under section 26, an application may not be made to the information commissioner, RTI commissioner or privacy commissioner. (3) For this Act— (a) a board, council, committee, subcommittee or other body established by government to help, or to perform functions connected with, an agency is not a separate agency, but is taken to be comprised within the agency; and (b) without limiting paragraph (a) and to remove any doubt, it is declared that a school council is not a separate agency, but is taken to be comprised within the department in which the Education (General Provisions) Act 2006 is administered; and (c) a reference to an agency includes a reference to a body that is taken to be comprised within the agency. (4) In this section— school council means a school council established under the Education (General Provisions) Act 2006, section 79. 15 Local government references for this Act A reference to local government includes a reference to the Wide Bay Water Corporation. 16 Meaning of public authority (1) In this Act, public authority means any of the following entities— Note— Under the Acts Interpretation Act 1954, schedule 1— entity includes a person and an unincorporated body. (a) an entity— (i) established for a public purpose by an Act; or (ii) established by government under an Act for a public purpose, whether or not the public purpose is stated in the Act; (b) an entity created by the Governor in Council or a Minister; (c) another entity declared by regulation to be a public authority for this Act, being an entity— (i) supported directly or indirectly by government funds or other assistance or over which government is in a position to exercise control; or (ii) established under an Act; or (iii) given public functions under an Act; (ca) a rail government entity under the Transport Infrastructure Act 1994; (d) subject to subsection (3), a person holding an office established under an Act; (e) a person holding an appointment— (i) made by the Governor in Council or Minister otherwise than under an Act; and (ii) declared by regulation to be an appointment the holder of which is a public authority for this Act. (2) A prescribed entity is not a public authority in relation to documents received, or created, by it in performing a function other than a public function given under an Act. (3) A person is not a public authority merely because the person holds— (a) an office the duties of which are performed as duties of employment as an agency's officer; or (b) an office of member of a body; or (c) an office established under an Act for the purposes of an agency. (4) In this section— prescribed entity means an entity that is a public authority only because it is given public functions under an Act and is declared by regulation to be a public authority for this Act. 17 Meaning of entity to which this Act does not apply In this Act, an entity to which this Act does not apply means— (a) an entity mentioned in schedule 2, part 1; or (b) an entity mentioned in schedule 2, part 2 in relation to the function mentioned in that part. 18Meaning of processing period , revision period and transfer period In this Act— processing period, for an application to an agency or Minister— 1 The processing period is a period of 25 business days from the day the application is received by the agency or Minister. 2 However, the following periods do not count as part of the processing period— (a) if the application is transferred to the agency or Minister—the transfer period; (b) if the agency or Minister asks the applicant for a further specified period under section 35(1)—the period during which, under section 35(3), the agency or Minister may continue to consider the application; (c) if the applicant is given a charges estimate notice under section 36—the revision period; (d) if the application involves consultation with a relevant third party under section 37—10 business days; (e) if the applicant is given a notice under section 42(1)(a)—the prescribed consultation period under section 42. revision period, for an application, means the period starting on the date of the first charges estimate notice given under section 36 and ending on the day the applicant confirms the application or, if the applicant narrows the application, confirms the changed application. transfer period, for an application, means the lesser of the following periods— (a) the period starting on the day the application is received by the agency or Minister who transfers the application and ending on the day the application is transferred; (b) the period of 10 business days. Part 3 Effect of publication by Cabinet on public interest immunity 18A Effect of publication by Cabinet on public interest immunity (1) This section applies in relation to a decision being made in a proceeding or process about whether a common law or statutory rule prevents the production or disclosure of information in connection with Cabinet because the production or disclosure would be contrary to the public interest. (2) In the making of the decision, the following matters must be disregarded in assessing the public interest— (a) the publication by Cabinet of any other information contained in the document that contains the information; (b) the publication by Cabinet of any other Cabinet information; (c) a decision by Cabinet to officially publish Cabinet information on a regular basis. (3) In this section— Cabinet information means information contained in a document mentioned in schedule 3, section 2(3). proceeding or process includes any extra-curial proceeding or inquisitorial or investigative process carried out under an Act. Examples— • an investigation carried out by the Crime and Corruption Commission • an investigation carried out by the Independent Assessor under the Local Government Act 2009 • an inquiry carried out by a professional body into a complaint against a member of the body Chapter 2 Disclosure other than by application under this Act 19 Other ways of accessing information Information may be accessed other than by application under this Act. Examples— 1 A document may be accessed under administrative arrangements made by an agency, including under its publication scheme or disclosure log or under another Act. 2 A document may be available for public inspection under the Public Records Act 2023 or in a public library. 3 A document may be commercially available. 20 Requirement for policy documents to be publicly available (1) An agency must make copies of each of its policy documents available for inspection and purchase by the public. (2) However, nothing in this section prevents an agency from deleting exempt information or contrary to public interest information from a copy of a policy document. (3) A person must not be subjected to any prejudice because of the application of the provisions of an agency's policy document (other than provisions the agency is permitted to delete from a copy of the document) to any act or omission of the person if, at the time of the act or omission— (a) the policy document was not available for inspection and purchase; and (b) the person was not aware of the provisions; and (c) the person could lawfully have avoided the prejudice had the person been aware of the provisions. 21 Requirement for publication scheme (1) An agency, other than an excluded entity, must publish a scheme (a publication scheme) setting out— (a) the classes of information that the agency has available; and (b) the terms on which it will make the information available, including any charges. (2) However, an agency (the relevant agency) may comply with subsection (1) if another agency publishes a scheme setting out— (a) the classes of information that the relevant agency has available; and (b) the terms on which the relevant agency or other agency will make the information available, including any charges. (3) An agency publishing a publication scheme must ensure that the publication scheme complies with any guidelines about publication schemes published by the Minister on the Minister's website. (4) In this section— excluded entity means a prescribed entity under section 16. 22 Disclosure under publication scheme Without limiting another way an agency may disclose information, it may disclose information under a publication scheme. 22A Civil liability of Minister for disclosing information (1) A Minister does not incur civil liability as a result of, or in connection with, disclosing information under a publication scheme or other administrative scheme in good faith. Examples of disclosing information— • publishing information on a department's website • official publication by decision of Cabinet of information contained in a Cabinet document (2) If subsection (1) prevents liability attaching to a Minister, the liability attaches instead to the State. Note— See also the Public Sector Act 2022, section 269, in relation to the civil liability of prescribed persons engaging in conduct in an official capacity. Chapter 3 Disclosure by application under this Act Part 1 Right to access 23 Right to be given access to particular documents (1) Subject to this Act, a person has a right to be given access under this Act to— (a) documents of an agency; and (b) documents of a Minister. Notes— 1 See part 2 for how to exercise this right to access. 2 Exclusions of the right are provided for under part 4 (which provides particular circumstances where an entity may refuse to deal with an application) and section 47 (which provides grounds on which an entity may refuse access). 3 A limitation on the right is set out in section 73 (which provides that, in particular circumstances, an entity may delete irrelevant information from a document before giving access). (2) Subsection (1) applies to documents even if they came into existence before the commencement of this Act. Note— Section 27 deems an access application to apply only to documents that are, or may be, in existence on the day the application is received. Part 2 Access application 24 Making access application (1) A person who wishes to be given access to a document of an agency or a document of a Minister under this Act may apply to the agency or Minister for access to the document. Notes— 1 Minister is defined to include an Assistant Minister—see schedule 5. 2 Section 25 provides for access applications by parents for children and section 190 clarifies the powers of those acting for others. 3 For an application made for a person, the person (and not the agent) is the applicant—see schedule 5, definition applicant. This may be particularly relevant for section 66 (Applicant under financial hardship). (2) The application must— (a) be in the approved form and be accompanied by the application fee; and (b) give sufficient information concerning the document to enable a responsible officer of the agency or the Minister to identify the document; and (c) state an address to which notices under this Act may be sent to the applicant; and (d) state whether access to the document is sought for the benefit of, or use of the document by— (i) the applicant; or (ii) another entity; and Example for paragraph (d)(ii)— A journalist makes an access application for a document for use of the document by an electronic or print media organisation. (e) if access to the document is sought for the benefit of, or use of the document by, an entity other than the applicant—the name of the other entity. (3) Also, if the application is for access to a document containing personal information of the applicant, the applicant must provide with the application or within 10 business days after making the application— (a) evidence of identity for the applicant; and (b) if an agent is acting for the applicant—evidence of the agent's authorisation and evidence of identity for the agent. Examples of an agent's authorisation— • the will or court order appointing the agent to act as the applicant's guardian • the client agreement authorising a legal practitioner to act for an applicant • if the application is made in reliance on section 25, evidence the agent is the child's parent (4) The application fee mentioned in subsection (2)(a) may not be waived. Note— However, an application fee must be refunded if a deemed decision is made—see section 46(1). (5) In this section— evidence of identity means the evidence of identity prescribed under a regulation. 25 Making access applications for children (1) Without limiting the ability of persons to make applications for children, an access application may be made for a child by the child's parent. Notes— 1 Section 190 clarifies the powers of those acting for others. 2 For an application made for a child, the child (and not the parent) is the applicant—see schedule 5, definition applicant. This may be particularly relevant for section 66 (Applicant under financial hardship). (2) In this section— child means an individual who is under 18 years. parent— 1 Parent, of a child, is any of the following persons— (a) the child's mother; (b) the child's father; (c) a person who exercises parental responsibility for the child, including a person who is granted guardianship of the child under the Child Protection Act 1999 or who otherwise exercises parental responsibility for the child under a decision or order of a federal court or a court of a State. 2 However, a person standing in the place of a parent of a child on a temporary basis is not a parent of the child. 3 A parent of an Aboriginal child includes a person who, under Aboriginal tradition, is regarded as a parent of the child. 4 A parent of a Torres Strait Islander child includes a person who, under Island custom, is regarded as a parent of the child. 26 Access application may not be made to commissioner An access application may not be made or transferred to the information commissioner, the RTI commissioner or the privacy commissioner. 27 Application for documents then existing (1) An access application is taken only to apply to documents that are, or may be, in existence on the day the application is received. (2) However, subsection (1) does not prevent an agency or Minister giving access to a document created after the application is received but before notice is given under section 54 (a post-application document). (3) If the agency or Minister gives the applicant access to a post-application document— (a) no processing charge or access charge is payable in relation to the document; and (b) the applicant is not entitled to review under this Act of a decision about the document made in relation to the application. 28 Application for metadata (1) An access application for a document is taken not to include an application for access to metadata about the document unless the access application expressly states that it does. (2) If an access application for a document expressly states that access to metadata about the document is sought, access to the metadata does not need to be given unless access is reasonably practicable. (3) In this section— metadata, about a document, includes information about the document's content, author, publication date and physical location. 29 Application not for backup system documents (1) An access application, however expressed, for a document does not require an agency or Minister to search for the document from a backup system. (2) However, subsection (1) does not prevent an agency or Minister searching for a document from a backup system if the agency or Minister considers the search appropriate. Note— While a search for a document from a backup system is not generally required before refusing access on the ground that the document is nonexistent or unlocatable, a search is required in the particular circumstances mentioned in section 52(2). Part 3 Dealing with application Division 1 Decision-maker 30 Decision-maker for application to agency (1) An access application to an agency must be dealt with for the agency by the agency's principal officer. (2) The agency's principal officer may delegate the power to deal with the application to another officer of the agency. (3) Also, for an agency other than a local government, the agency's principal officer may, with the agreement of another agency's principal officer, delegate the power to deal with the application to the other agency's principal officer. (4) The principal officer of the other agency may subdelegate a power delegated to him or her under subsection (3). Note— Under the Acts Interpretation Act 1954, section 27A(2), a delegation may be revoked, wholly or partly, by the delegator. Accordingly, a delegation may be revoked before a decision is made in a particular case and the delegator may make the decision. (5) However— (a) a principal officer may not, under subsection (2) or (4) delegate the power to deal with the application to the extent it involves— (i) making a healthcare decision; or (ii) appointing a healthcare professional under paragraph (b); but (b) the agency may appoint an appropriately qualified healthcare professional to make a healthcare decision in relation to the application. (6) In this section— healthcare decision means a decision about any of the following matters— (a) whether disclosure to the applicant of relevant healthcare information about the applicant might be prejudicial to the physical or mental health or wellbeing of the applicant under section 51; (b) whether to refuse access under section 47(3)(d); (c) whether to give access despite being able to refuse access under section 47(3)(d); (d) whether to give a direction under section 77(2); (e) whether to approve a healthcare professional under section 77(2). power to deal, with an access application, includes power to deal with an application for internal review in relation to the access application. Examples of dealing with an application for internal review— • making a new decision under section 80(2) • giving notice under section 83(3) 31 Decision-maker for application to Minister (1) An access application to a Minister may be dealt with by the person the Minister directs, either generally or in a particular case. (2) However— (a) the Minister may not direct the person to deal with the application to the extent it involves— (i) making a healthcare decision; or (ii) appointing a healthcare professional under paragraph (b); but (b) the Minister may appoint an appropriately qualified healthcare professional to make a healthcare decision in relation to the application. (3) In this section— deal, with an access application, includes deal with an application for internal review in relation to the access application. Examples of dealing with an application for internal review— • making a new decision under section 80(2) • giving notice under section 83(3) healthcare decision see section 30. Division 2 Preliminary contact with applicant 32 Application outside scope of Act (1) This section applies if— (a) a person purports to make an application under this Act to an entity for access to a document; and (b) the entity decides the application is outside the scope of this Act for 1 or more of the following reasons— (i) the document is a document to which this Act does not apply; (ii) the entity is an entity to which this Act does not apply; (iii) the application is made to the information commissioner, RTI commissioner or privacy commissioner. (2) Within 10 business days after the purported application is received, the entity must give prescribed written notice to the applicant of the decision. 33 Noncompliance with application requirement (1) This section applies if— (a) a person purports to make an access application for a document to an agency or Minister; and (b) the application does not comply with all relevant application requirements. (2) The agency or Minister must make reasonable efforts to contact the person within 15 business days after the purported application is received and inform the person how the application does not comply with a relevant application requirement. (3) An agency or Minister must not refuse to deal with an application because it does not comply with all relevant application requirements without first giving the applicant a reasonable opportunity to consult with a view to making an application in a form complying with all relevant application requirements. (4) The applicant is taken to have made an application under this Act if and when the application is made in a form complying with all relevant application requirements. (5) Subsection (4) does not limit section 32. (6) If, after giving the opportunity mentioned in subsection (3) and any consultation, an agency or Minister decides the application does not comply with all relevant application requirements, the agency or Minister must, within 10 business days after making the decision, give the applicant prescribed written notice of the decision. (7) In this section— relevant application requirement, for an access application, means a matter set out in section 24(2) or (3) that is required for the application. 34 Application for personal information (1) This section applies if, on its face, an access application made under this Act could have been made under the Information Privacy Act because the application is for access to a document to the extent it contains the applicant's personal information. (2) The agency or Minister must, within 15 business days after the application is received, inform the applicant that— (a) the application could have been made under the Information Privacy Act without any application fee or processing charge being payable; and (b) the applicant may either— (i) ask for the application to be dealt with under the Information Privacy Act; or (ii) confirm the application as an application under this Act. (3) If the applicant asks for the application to be dealt with under the Information Privacy Act— (a) the applicant is taken to have made the application under the Information Privacy Act on the date of the request; and (b) any application fee paid by the applicant must be refunded as soon as practicable. (4) However, the application continues to be dealt with as an application under this Act if— (a) the applicant confirms the application as an application under this Act; or (b) the applicant does not, within a reasonable time, either make the request, or give the confirmation, mentioned in subsection (2)(b). 35 Longer processing period (1) At any time before a deemed decision is taken to have been made in relation to an access application, the agency or Minister may ask the applicant for a further specified period to consider the application. (2) Additional requests for further specified periods may be made under subsection (1). (3) The agency or Minister may continue to consider the application and make a considered decision in relation to it only if— (a) the agency or Minister has asked the applicant for a further specified period under subsection (1); and (b) the applicant has not refused the request; and (c) the agency or Minister has not received notice that the applicant has applied for review under this Act. (4) If a considered decision is made, the considered decision replaces any deemed decision for the purposes of this Act. Note— The agency or Minister must give prescribed written notice of the considered decision and the considered decision is potentially subject to review under this Act. 36 Schedule of relevant documents and charges estimate notice (1) If a person makes an access application to an agency or Minister, the agency or Minister must— (a) consider whether a processing charge or access charge is payable in relation to the application; and (b) before the end of the processing period for the application, give the applicant— (i) a schedule of relevant documents for the applicant unless the applicant waives the requirement; and (ii) a charges estimate notice. (2) After receiving a charges estimate notice, the applicant may consult with the agency or Minister with a view to narrowing the application to reduce the applicable charges. (3) If the applicant does not confirm, narrow or withdraw the access application within the prescribed period, the applicant is taken to have withdrawn the applicant's application at the end of the prescribed period. (4) If the applicant narrows the access application within the prescribed period, the agency or Minister must, before the end of the processing period for the application, give the applicant a new charges estimate notice. (5) No more than 2 charges estimate notices may be given in relation to an access application. (6) Also, subsections (2) to (4) do not apply if a decision is made, under part 6, division 3, to waive charges. (7) In this section— charges estimate notice, for an access application, means a written notice stating the following details— (a) if a request has been made to an agency or Minister for waiver of charges—the agency's or Minister's decision on whether charges will be waived under part 6, division 3; (b) the agency's or Minister's estimate of the amount of any processing charge or access charge; (c) the basis on which the estimate is made; (d) the day the decision was made; (e) the name and designation of the person making the decision; (f) the effect of subsections (2) and (3); (g) any rights of review under this Act in relation to the decision, the procedures to be followed for exercising the rights and the time within which an application for review must be made. prescribed period— 1 The prescribed period is 20 business days from the date of the charges estimate notice or any longer period agreed under paragraph 2. 2 The applicant and the agency or Minister may agree to extend the prescribed period. schedule of relevant documents— 1 For an access application, a schedule of relevant documents is a schedule that— (a) sets out and gives a brief description of the classes of documents relevant to the application in the possession, or under the control, of the agency or Minister; and (b) sets out the number of documents in each class. 2 However, an agency or Minister is not required to include any exempt information or contrary to public interest information in the schedule. Division 3 Contact with relevant third party 37 Disclosure of concern to third party (1) An agency or Minister may give access to a document that contains information the disclosure of which may reasonably be expected to be of concern to a government, agency or person (the relevant third party) only if the agency or Minister has taken the steps that are reasonably practicable— (a) to obtain the views of the relevant third party about whether— (i) the document is a document to which this Act does not apply; or (ii) the information is exempt information or contrary to public interest information; and (b) to inform the relevant third party that if access is given to the document because of an access application, access may also be given to the document under a disclosure log. (2) If disclosure of information may reasonably be expected to be of concern to a person but for the fact that the person is deceased, subsection (1) applies as if the person's representative were a relevant third party. (3) If— (a) the agency or Minister obtains the views of the relevant third party and the relevant third party considers— (i) the document is a document to which this Act does not apply; or (ii) the information is exempt information or contrary to public interest information; but (b) the agency or Minister decides— (i) the document is a document to which this Act does apply; or (ii) the information is not exempt information or contrary to public interest information; the agency or Minister must— (c) give prescribed written notice of the decision of the agency or Minister to the applicant and the relevant third party; and (d) defer giving access to the document until after— (i) the agency or Minister is given written notice by the relevant third party that it does not intend to make any application for review under this Act; or (ii) if notice is not given under subparagraph (i) and no application for review under this Act is made by the end of the review period—the end of the review period; or (iii) if an application for review under this Act is made by the end of the review period—the review has ended (whether because of an informal resolution or because of a decision of the entity conducting the review). (4) The agency or Minister must give the applicant written notice when access is no longer deferred under subsection (3)(d). (5) In this section— representative, in relation to a deceased person, means the deceased person's eligible family member, or, if 2 or more persons qualify as the deceased person's eligible family member, 1 of those persons. review period means the period within which any application for review under this Act may be made. Division 4 Transfers 38 Transfer of application (1) In this section— agency includes a Minister. (2) An agency to which an application has been made (the original agency) may transfer the application to another agency if— (a) the document to which the application relates is not in the original agency's possession but is, to the original agency's knowledge, in the other agency's possession; and (b) the other agency consents to the transfer. (3) An application that is transferred from 1 agency to another agency is taken to have been made to the other agency. (4) If— (a) an application is made to an agency for access to more than 1 document; and (b) 1 or more of the documents is a document mentioned in subsection (2)(a); this section (other than subsections (5) and (6)) applies to each of the documents as if separate applications had been made to the agency for each of the documents. (5) If part of an application is transferred under this section and the transferred part of the application relates to a document that is not personal information of the applicant, a separate application fee is payable for the transferred part of the application. (6) However, if the part of the application which is not transferred under this section relates only to a document that is personal information of the applicant, subsection (5) applies only to the extent that there is a transfer to more than 1 agency. Part 4 Refusal to deal with application 39 Pro-disclosure bias in deciding to deal with applications (1) It is the Parliament's intention that if an access application is made to an agency or Minister, the agency or Minister should deal with the application unless this would, on balance, be contrary to the public interest. (2) Sections 40, 41 and 43 state the only circumstances in which the Parliament considers it would, on balance, be contrary to the public interest to deal with an access application. (3) However, it is the Parliament's intention that this Act should be administered with a pro-disclosure bias and an agency or Minister may deal with an access application even if this Act provides that the agency or Minister may refuse to deal with the application. 40 Exempt information (1) This section applies if— (a) an access application is expressed to relate to all documents, or to all documents of a stated class, that contain information of a stated kind or relate to a stated subject matter; and (b) it appears to the agency or Minister that all of the documents to which the application relates are comprised of exempt information. (2) The agency or Minister may refuse to deal with the application without having identified any or all of the documents. 41 Effect on agency's or Minister's functions (1) An agency or Minister may refuse to deal with an access application or, if the agency or Minister is considering 2 or more access applications by the applicant, all the applications, if the agency or Minister considers the work involved in dealing with the application or all the applications would, if carried out— (a) substantially and unreasonably divert the resources of the agency from their use by the agency in the performance of its functions; or (b) interfere substantially and unreasonably with the performance by the Minister of the Minister's functions. (2) Without limiting the matters to which the agency or Minister may have regard in making a decision under subsection (1), the agency or Minister must have regard to the resources that would have to be used— (a) in identifying, locating or collating any documents in the filing system of the agency or the Minister's office; or (b) in deciding whether to give, refuse or defer access to any documents, or to give access to edited copies of any documents, including resources that would have to be used— (i) in examining any documents; or (ii) in consulting in relation to the application with a relevant third party under section 37; or (c) in making a copy, or edited copy, of any documents; or (d) in notifying any final decision on the application. (3) In deciding whether to refuse, under subsection (1), to deal with an access application, an agency or Minister must not have regard to— (a) any reasons the applicant gives for applying for access; or (b) the agency's or Minister's belief about what are the applicant's reasons for applying for access. 42 Prerequisites before refusal because of effect on functions (1) An agency or Minister may refuse to deal with an access application under section 41 only if— (a) the agency or Minister has given the applicant a written notice— (i) stating an intention to refuse to deal with the application; and (ii) advising that, for the prescribed consultation period for the notice, the applicant may consult with the agency or Minister with a view to making an application in a form that would remove the ground for refusal; and (iii) stating the effect of subsections (2) to (6); and (b) the agency or Minister has given the applicant a reasonable opportunity to consult with the agency or Minister; and (c) the agency or Minister has, as far as is reasonably practicable, given the applicant any information that would help the making of an application in a form that would remove the ground for refusal. (2) Following any consultation, the applicant may give the agency or Minister written notice either confirming or narrowing the application. (3) If the application is narrowed, section 41 applies in relation to the changed application but this section does not apply to it. (4) If the applicant fails to consult after being given notice under subsection (1), the applicant is taken to have withdrawn the application at the end of the prescribed consultation period. (5) Without limiting subsection (4), the applicant is taken to have failed to consult if, by the end of the prescribed consultation period, the applicant has not given the named officer or member written notice under subsection (2). (6) In this section— prescribed consultation period, for a written notice under subsection (1)(a), means— (a) the period of 10 business days after the date of the notice; or (b) the longer period agreed by the agency or Minister and the applicant whether before or after the end of the 10 business days mentioned in paragraph (a). 43 Previous application for same documents (1) This section applies if— (a) an applicant makes an access application, whether under this Act or the Information Privacy Act, to an agency or Minister (the first application); and (b) the applicant makes another access application under this Act (the later application) to the same agency or Minister for access to 1 or more of the same documents sought under the first application and the later application does not, on its face, disclose any reasonable basis for again seeking access to the document or documents. (2) For subsection (1)(a)— (a) the first application, if made under this Act— (i) does not include an access application taken to have been withdrawn under section 36(3) or 42(4); and (ii) if an access application has been narrowed under section 36 or 42—means only the access application as changed; and (b) the first application, if made under the Information Privacy Act— (i) does not include an access application taken to have been withdrawn under section 61(4) of that Act; and (ii) if an access application has been narrowed under section 61 of that Act—means only the access application as changed. (3) The agency or Minister may refuse to deal with the later application to the extent it is for access to a document or documents sought under the first application if— (a) when the later application was made, the agency or Minister had not decided the first application; or (b) in relation to the first application, if made under this Act— (i) the applicant had been given notice under section 54 that access was to be given to the document sought or to some or all of the documents sought; or (ii) the agency or Minister had decided that the application was for a document to which this Act does not apply; or (iii) the agency or Minister had decided the document or documents sought were documents access to which was refused under section 47; or (iv) the agency or Minister had refused to deal with it under this part; or (c) in relation to the first application, if made under the Information Privacy Act— (i) the applicant had been given notice under section 68 of that Act that access was to be given to the document sought or to some or all the documents sought; or (ii) the agency or Minister had decided that the application was for a document to which chapter 3 of that Act does not apply; or (iii) the agency or Minister had decided the document or documents sought were documents access to which was refused under section 67 of that Act; or (iv) the agency or Minister had refused to deal with it under chapter 3, part 4 of that Act; or (d) the agency's or Minister's decision on the first application— (i) is the subject of a review and the review is not complete; or (ii) has been the subject of a completed review (other than an internal review). (4) For subsection (3), if a document sought under the later application is merely a record of the first application having been made (a record document), access to a record document is taken to have been sought under the first application. (5) For subsection (3)(d)— review means— (a) an internal review under this Act or the Information Privacy Act; or (b) an external review under this Act or the Information Privacy Act; or (c) a proceeding under part 11 or under the Information Privacy Act, chapter 3, part 11. (6) For subsection (3)(d), a review is complete if the review has ended because of an informal resolution or because of a decision of the entity conducting the review. Part 5 Decision 44 Pro-disclosure bias in deciding access to documents (1) It is the Parliament's intention that if an access application is made to an agency or Minister for a document, the agency or Minister should decide to give access to the document unless giving access would, on balance, be contrary to the public interest. (2) The purpose of this part is to help the agency or Minister decide whether giving access would, on balance, be contrary to the public interest by— (a) setting out in schedule 3 types of information the disclosure of which the Parliament has considered would, on balance, be contrary to the public interest; and (b) setting out in section 49 the steps, and, in schedule 4, factors, for deciding, for other types of information, whether disclosure would, on balance, be contrary to the public interest. (3) Also, sections 50 and 51 set out circumstances concerning information about a child and personal healthcare information about an applicant in which the Parliament has stated its intention about what is in the best interests of the child and applicant. (4) However, it is the Parliament's intention that this Act should be administered with a pro-disclosure bias and an agency or Minister may give access to a document even if this Act provides that access to the document may be refused. 45 Considered decision on access application If a person makes an access application for a document to an agency or Minister, the agency or Minister must— (a) after considering the application, make a decision (a considered decision)— (i) whether access is to be given to the document; and (ii) if access is to be given—whether any charge must be paid before access is given; and (b) give the person written notice of the decision under section 54. 46 Deemed decision on access application (1) If an applicant is not given written notice of the decision by the end of the processing period for an access application for a document— (a) on the last day of the processing period the principal officer of the agency or the Minister is taken to have made a decision (a deemed decision) refusing access to the document; and (b) the application fee must be refunded as soon as practicable after the end of the processing period. (2) As soon as practicable after a deemed decision is taken to have been made, the principal officer or Minister must give prescribed written notice of the decision to the applicant. 47 Grounds on which access may be refused (1) This section sets out grounds on which access may be refused. (2) It is the Parliament's intention that— (a) the grounds are to be interpreted narrowly; and (b) an agency or Minister may give access to a document even if a ground on which access may be refused applies. (3) On an application, an agency may refuse access to a document of the agency and a Minister may refuse access to a document of the Minister— (a) to the extent the document comprises exempt information under section 48; or (b) to the extent the document comprises information the disclosure of which would, on balance, be contrary to the public interest under section 49; or (c) to the extent the document is sought under an application by or for a child and comprises the child's personal information the disclosure of which would not be in the child's best interests under section 50; or (d) to the extent the document comprises an applicant's relevant healthcare information the disclosure of which might be prejudicial to the physical or mental health or wellbeing of the applicant under section 51; or (e) because the document is nonexistent or unlocatable as mentioned in section 52; or (f) because other access to the document is available as mentioned in section 53. Note— Only a principal officer, Minister or appointed healthcare professional may refuse access to a document of an agency as mentioned in paragraph (d)—see sections 30(5) and 31(2). (4) In this section— child means an individual who is under 18 years. 48 Exempt information (1) If an access application is made to an agency or Minister for a document, the agency or Minister must decide to give access to the document unless disclosure would, on balance, be contrary to the public interest. (2) Schedule 3 sets out the types of information the disclosure of which the Parliament has considered would, on balance, be contrary to the public interest. (3) However, despite an agency or Minister being able, under section 47(3)(a), to refuse access to all or part of a document, the agency or Minister may decide to give access. (4) In this Act— exempt information means the information that is exempt information under schedule 3. 49 Contrary to public interest (1) If an access application is made to an agency or Minister for a document, the agency or Minister must decide to give access to the document unless disclosure would, on balance, be contrary to the public interest. (2) This section sets out the steps, and, in schedule 4, factors, the Parliament considers appropriate for deciding, for types of information (other than exempt information), whether disclosure would, on balance, be contrary to the public interest. (3) If it is relevant for an agency or Minister to consider whether, on balance, disclosure of information would be contrary to the public interest, the agency or Minister must undertake the following steps— (a) identify any factor that is irrelevant to deciding whether, on balance, disclosure of the information would be contrary to the public interest, including any factor mentioned in schedule 4, part 1 that applies in relation to the information (an irrelevant factor); (b) identify any factor favouring disclosure that applies in relation to the information (a relevant factor favouring disclosure), including any factor mentioned in schedule 4, part 2; (c) identify any factor favouring nondisclosure that applies in relation to the information (a relevant factor favouring nondisclosure), including any factor mentioned in schedule 4, part 3 or 4; (d) disregard any irrelevant factor; (e) having regard to subsection (4), balance any relevant factor or factors favouring disclosure against any relevant factor or factors favouring nondisclosure; (f) decide whether, on balance, disclosure of the information would be contrary to the public interest; (g) unless, on balance, disclosure of the information would be contrary to the public interest, allow access to the information subject to this Act. (4) The factors mentioned in schedule 4, part 4 are factors where disclosure could reasonably be expected to cause a public interest harm (harm factors) but the fact that 1 or more of the relevant factors favouring nondisclosure is a harm factor does not of itself mean that, on balance, disclosure of the information would be contrary to the public interest. (5) However, despite an agency or Minister being able, under section 47(3)(b), to refuse access to all or part of a document, the agency or Minister may decide to give access. 50 Contrary to child's best interests (1) If an access application is made to an agency or Minister for a document, the agency or Minister must decide to give access to the document unless disclosure would, on balance, be contrary to the public interest. (2) Despite schedule 3, section 12(2) and schedule 4, part 2, item 8, in relation to an application by or for a child for access to a document, the Parliament considers it would, on balance, be contrary to the public interest to give access to the document to the extent it comprises personal information of the child if the disclosure of the information would not be in the child's best interests. (3) In considering whether disclosure of the information would not be in the best interests of the child, the agency or Minister must, unless the access application was made for the child, have regard to whether the child has the capacity to— (a) understand the information and the context in which it was recorded; and (b) make a mature judgment as to what might be in his or her best interests. (4) However, despite an agency or Minister being able, under section 47(3)(c), to refuse access to all or part of a document, the agency or Minister may decide to give access. (5) In this section— child means an individual who is under 18 years. 51 Contrary to applicant's best interests—healthcare information (1) If an access application is made to an agency or Minister for a document, the agency or Minister must decide to give access to the document unless disclosure would, on balance, be contrary to the public interest. (2) Despite schedule 3, section 12(2) and schedule 4, part 2, item 7, the Parliament considers it would, on balance, be contrary to the public interest to give access to a document to the extent it comprises relevant healthcare information of the applicant if the disclosure of the information might be prejudicial to the physical or mental health or wellbeing of the applicant. Note— Only a principal officer, Minister or appointed healthcare professional may decide whether disclosure might be prejudicial to the physical or mental health or wellbeing of the applicant—see sections 30(5) and 31(2). (3) However, despite an agency or Minister being able, under section 47(3)(d), to refuse access to all or part of a document, the agency or the Minister may decide to give access. Notes— 1 Only a principal officer, Minister or appointed healthcare professional may decide to give access under subsection (3)—see sections 30(5) and 31(2). 2 Also, relevant healthcare information to which access is refused may ultimately be disclosed to the applicant by the applicant's nominated healthcare professional under section 77. 52 Document nonexistent or unlocatable (1) For section 47(3)(e), a document is nonexistent or unlocatable if— (a) the agency or Minister dealing with the application for access is satisfied the document does not exist; or Example— a document that has not been created (b) the agency or Minister dealing with the application for access is satisfied— (i) the document has been or should be in the agency's or Minister's possession; and (ii) all reasonable steps have been taken to find the document but the document can not be found. Examples— • a document that has been lost • a document that has been disposed of under a disposal authorisation given by the State Archivist under the Public Records Act 2023 Note— Under the Public Records Act 2023, section 23, it is an offence to dispose of a public record without authorisation. (2) Before an agency or Minister may be satisfied under subsection (1)(a) that a prescribed document does not exist, a search for the document from a backup system is required, but only if the agency or Minister considers the document has been kept in, and is retrievable from, the backup system. (3) Subject to subsection (2), a search for a document from a backup system is not required before the document is nonexistent or unlocatable for section 47(3)(e). (4) In this section— prescribed document means a document that— (a) is a document required to be kept under the Public Records Act 2023; and (b) is not a document that the agency or Minister could lawfully have disposed of under the Public Records Act 2023. 53 Other access available For section 47(3)(f), other access is available to a document if— (a) the applicant can reasonably access the document under another Act, or under arrangements made by an agency, whether or not the access is subject to a fee or charge; or Note— A document mentioned in an agency's disclosure log is a document an applicant can reasonably get access to under arrangements made by the agency. (b) the document is reasonably available for public inspection under the Public Records Act 2023 or in a public library; or (c) the document— (i) is stored for preservation or safe custody in the Queensland State Archives; and (ii) is a copy of a document of an agency; or (d) the document is commercially available. 54 Notification of decision and reasons (1) An agency or Minister must give a prescribed written notice to an applicant for an access application of— (a) the decision on the application, including a decision to refuse to deal with the application; and (b) if the application relates to a document that is not a document in the possession, or under the control, of the agency or Minister—the fact that the document is not a document in