万鹏飞

• 1:北京大学首都发展研究院
• 2:北京大学地方政府治理与创新研究中心
• 3:北京大学政府管理学院

摘要(Abstract)：

本文以英国政府信息公开为个案,首先系统梳理了英国政府信息公开的三个发展阶段,然后从八个方面考察了英国"信息自由法2000"的主要内容,接着专注于英国信息自由法的成效和问题评估,最后是结论性的反思。文章从经验的视角概括了英国政府信息公开发展的三大特点:路径的"四先四后"、动力的内外互动、保障和监督机制的相对健全。从理论的视角阐述了英国政府信息公开的发展对我们的六点启示:宪政制度整体的判断应该和细节部分的考察相结合;制度的选择和建构不能随心所欲;抵制和抗拒信息公开的政府本性需要体制内外力量的斗争和推动;信息自由法的实施有赖于分权制衡的制度保障;信息公开必须兼顾政府的效能;信息自由意义上的信息公开是人类从权力为中心的治理向权利为中心的治理迈出的重要一步。

关键词(KeyWords)： 信息公开;信息自由;公共利益

Abstract:

Keywords:

基金项目(Foundation):

作者(Author): 万鹏飞

参考文献(References)：

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• (2)Tom Felle,"Freedom of Information in the UK-Opportunity and Threat,"Political Insight,April 2016,p.30;沃尔特·白芝浩,《英国宪法》,夏彦才译,商务印书馆,2010,第103页。
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• (7)参见以下出处https://en.wikipedia.org/wiki/DA-Notice;http://www.naa.gov.au/collection/fact-sheets/fs49.aspx;http://www.thefreedictionary.com/D-notice。
• (8)参见英国D Notice的官方网站http://www.dnotice.org.uk/index.htm。
• (9)"The D-notice system:a typically British fudge that has survived a century,"https://www.theguardian.com/media/2015/jul/31/d-notice-system-state-media-press-freedom.
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• (1)Michael Everett,The Official Secrets Acts and Official Secrecy,pp.16-17,17 December 2015,http://researchbriefings,parliament uk/ResearchBriefing/Summary/CBP-7422;Lucinda Maer and Oonagh Gay,Official Secrecy,30 December 2008,http://researchbriefings.parliament.uk/ResearchBriefing/Summary/SN02023.
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• (1)https://en.wikipedia.org/wiki/Campaign_for_Freedom_of_Information.
• (2)https;//www.cfoi.org.uk/2009/12/secrets-newspaper-1984-1993/.
• (3)https://www.cfoi.org.uk/about/.
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• (1)History of Freedom of Information in the UK,https://www.cfoi.org.uk/about-foi/history-of-freedom-of-infonnation-in-the-uk/.
• (2)参见下述材料The Official Secrets Act 1989,http://www.legislation,gov.uk/ukpga/1989/6/pdfs/ukpga_19890006_en.pdf;BASIC GUIDE TO THE OFFICIAL SECRETS ACT 1989,http://www.gov.scot/Resource/Doc/175356/0109623,pdf;History of Freedom of Information in the UK,https://www.cfoi.org.uk/aboutfoi/history-of-freedom-of-information-in-the-uk/。
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• (1)History of Freedom of Information in the UK,https://www.cfoi.org.uk/about-foi/history-of-freedom-of-information-in-the-uk/.
• (2)Freedom of Information 2000,p.45,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf;Freedom of Information requests,2015,p.8,researchbriefings.files.parliament.uk/documents/SN02950/SN02950.pdf.
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• (4)参见Freedom of Information 2000,Part III,IV,V,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf;Judy Goodall and Oonagh Gay,Freedom of Information;the first five years,2010,pp.9-15,researchbriefings.files.parliament.uk/documents/SN05666/SN05666.pdf;The Independent Commission on Freedom of Information,https;//www.gov.uk/government/organisations/independent-commissionon-freedom-of-information/about;Freedom of information;new Commission,https;//www.gov.uk/government/speeches/freedom-of-information-new-eommission;The National Archive,http://www.nationalarchives.gov.uk/about/our-role/.
• (5)http;//www.legislation.gov.uk/asp/2002/13/pdfs/asp_20020013_en.pdf.
• (1)http://www.legislation.gov.uk/uksi/2004/3391/pdfs/uksi_20043391_en.pdf.
• (2)http://www.legislation.gov.uk/uksi/2005/1515/pdfs/uksi_20051515_en.pdf.
• (3)http://www.legislation.gov.uk/uksi/2005/467/made/data.pdf.
• (4)http://www.legislation.gov.uk/ukpga/2012/9/pdfs/ukpga_20120009_en.pdf.
• (5)http://www.legislation.gov.uk/uksi/2015/1415/pdfs/uksi_20151415_en.pdf.
• (6)Public bodies call for Fol Act to be weakened,https://www.politicshome.com/news/uk/home-affairs/news/68945/public-bodies-call-foi-act-be-weakened.
• (7)Tom Felle,"Freedom of Information in the UK-Opportunity and Threat,*'Political Insight,April 2016,p.31.
• (8)"Don't Weaken the UK*s Freedom of Information Act,"https://www.indexoncensorship.org/2015/09/dont-weaken-the-uks-freedom-of-information-act/.
• (9)"Changes to weaken FOI would'damage democracy*,"https://www.city.ac.uk/news/2015/november/changes-to-weaken-foi-would-damage-democracy,-warn-city-journalism-academics.
• (10)https://www.cfoi.org.uk/campaigns/.
• (1)以下所有内容皆来自Freedom of Informtion Act 2000,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf。来自其他文献的将另注明出处。
• (2)Explanatory Note Freedom of Information,2000,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpgaen_20000036_en.pdf.
• (3)Information Commissioner's Office,The Guide to Freedom of Information,August 2016,p.4,https://ico.org.uk/media/for-organisations/guide-to-freedom-of-information-4-8.pdf.
• (4)ICO,The Guide to Freedom of Information,01 August 2016,p.8,http;//www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (1)ICO,Consideration of the identity or motives of the applicant,05 March 2015,pp.2-3,https://ico.org.uk/media/for-organisations/documents/1043418/consideration-of-the-identity-or-motives-of-the-applicant.pdf.
• (2)本部分内容以“信息自由法2000”文本为基础,同时参照ICO,Public authorities under the Freedom of Information Act,01 September 2016,https://ico.org.uk/media/for-organisations/documents/1152/public_authorities_under_the_foia.pdf。
• (1)ICO,The Guide to Freedom of Information,01 August 2016,p.4,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (2)ICO,Model publication scheme,23 October 2015,p.2,http://ico.org.uk/media/for-organisations/documents/1 153/model-publication-scheme.pdf.
• (3)ICO,Datasets(sections 11,19&45),23 October 2015,p.2,https://ico.org.uk/media/for-organisations/documents/1151/datasets-foi-guidance.pdf.
• (4)请参照以下文件ICO,The right to recorded information and requests for documents,26 March 2014,https://ico.org.uk/media/for-organisations/docuraents/1621/the-right-to-recorded-information-and-requestsfor-documents.pdf;ICO,Outsourcing and freedom of information-guidance document,24 July 2015,https://ico.org.uk/media/for-organisations/documents/1043530/outsourcing-and-freedom-of-information.pdf;ICO,Official information held in private email accounts,23 May 2016,https://ico.org.uk/media/for-organisations/documents/1147/official_information_held_in_private_email_accounts,pdf。
• (1)ICO,The Guide to Freedom of Information,01 August 2016,p.39,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (2)参见以下文件ICO,The Guide to Freedom of Information,01 August 2016,pp.39-40,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf;Lucinda Maer,Freedom of Information requests.Number 02950,28 May 2015,p.4,http://www.researchbriefings.files,parliament.uk/documents/SN02950/SN02950.pdf.
• (1)ICO,The Guide to Freedom of Information,01 August 2016,pp.39-51,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf;Lucinda Maer,Freedom of Information requests,Number02950,28 May 2015,pp.4-5,http://www.researchbriefings.files.parliament.uk/documents/SN02950/SN02950.pdf.
• (1)ICO,Model publication scheme,23 October 2015,pp.1-4,https://ico.org.uk/media/for-organisations/documents/1153/model-publication-scheme.pdf.
• (2)综合两份文件而成:“信息自由法2000”第8款;ICO,The Guide to Freedom of Information,01 August2016,p.23,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf。
• (3)ICO,The Guide to Freedom of Information,01 August 2016,pp.26-27,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (4)ICO,The Guide to Freedom of Information,01 August 2016,pp.21-29,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (1)Judy Goodall and Oonagh Gay,Freedom of Information:the first five years,28 July 2010,p.9,http://researchbriefings.files.parliament uk/documents/SN05666/SN05666.pdf.
• (2)https://www.gov.uk/government/organisations/information-commissioner-s-office.
• (3)参见ICO门户网站https://ico.org.uk/about-the-ico/what-we-do/。
• (1)本文专注英国公共机构信息的公开,隐私和有关数据的保护将另文研究。
• (2)ICO,The Guide to Freedom of Information,01 August 2016,p.57,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf.
• (3)ICO门户网站:https://ico.org.uk/about-the-ico/what-we-do/taking-action-freedom-of-information-and-environmental-information/。
• (1)根据下述两份文件整理而成:ICO,The Guide to Freedom of Information,01 August 2016,pp.57-61,http://www.legislation.gov.uk/ukpga/2000/36/pdfs/ukpgaod_20000036_en.pdf;ICO,How we deal with complaints-A guide for public authorities,09 September 2011,https://ico.org.uk/media/for-organisations/documents/1215/complaints_guide_for_public_authorities,pdf。
• (1)根据下述文件综合而成:Freedom of Information Act 2000,pp.31-33;Oonagh Gay,FoI and Ministerial Vetoes,15 May 2012,http://www.pdpjournals.com/docs/87994.pdf;Oonagh Gay and Ed Potton,FoI and Ministerial Vetoes,http://www.pdpjournals.com/docs/87994.pdf;Independent Commission on Freedom of Information Report,March 2016,pp.36-37,https://www.gov.uk/govemment/organisations/independent-commission-on-freedom-of-information;Philip Ward,Freedom of information:changing the law?10March 2016,p.13,http://researchbriefings.files,parliament uk/documents/CBP-7400/CBP-7400.pdf;Meredith Cook,Balancing the Public Interest;Applying the public interest test to exemptions in the UK Freedom of Information Act 2000,August 2003,p.13。
• (2)Philip Coppel,The Public Interest and the Freedom of Information Act 2000,in Journal of Judicial Review,Volume 10,2005-Issue 4,pp.289-295.
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• (1)ICO,Public Interest Test,19 July 2016,p.2-30,https://ico.org.uk/media/for-organisations/documents/1183/the_public_interest_test.pdf.
• (2)Robert Hazell,Ben Wrothy&Mark Glover,The Impact of Information Act on Central Government in the UK:Does FOI Work?Palgrave Macmillan,2010.
• (3)Judy Goodall and Oonagh Gay,Freedom of Information:the first five years,2010,pp.9-15,http://www.researchbriefings.files.parliament.uk/documents/SN05666/SN05666.pdf.
• (4)House of Commons Justice Committee,Post-legislative scrutiny of the Freedom of Information Act 2000,First Report of Session 2012-13,http://www.publications.parliament.uk/pa/cm201213/cmselect/cmjust/96/96.pdf.
• (5)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report,2016,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent_Freedom_of_Information_Commission_Report.pdf.
• (1)Ministry of Justice,Memorandum to the Justice Select Committee Post-Legislative Assessment of the Freedom of Information Act 2000-201 1,December 2011,pp.5-7,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217339/post-legislative-assessment-of-the-foi-act.pdf.
• (2)Ministry of Justice,Memorandum to the Justice Select Committee Post-Legislative Assessment of the Freedom of Information Act 2000-2011,December 2011,pp.45,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217339/posl-legislative-assessment-of-the-foi-act.pdf.
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• (1)Ministry of Justice,Memorandum to the Justice Select Committee Post-Legislative Assessment of the Freedom of Information Act 2000-2011,December 2011,p.55,https://www.gov.uk/government/uploads/system/uploads/attachment data/file/217339/post-legislative-assessment-of-the-foi-act.pdf.
• (2)Robert Hazell,Ben Wrothy&Mark Glover,The Impact of Information Act on Central Government in the UK:Does FOI Work?Palgrave Macmillan,2010,pp.117-133.
• (3)Ministry of Justice,Memorandum to the Justice Select Committee Post-Legislative Assessment of the Freedom of Information Act 2000-2011,December 2011,pp.58-59,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217339/post-legislative-assessment-of-the-foi-act.pdf.
• (4)Robert Hazell,Ben Wrothy&Mark Glover,The Impact of Information Act on Central Government in the UK:Does FOI Workl.Palgrave Macmillan,2010,pp.214-243.
• (5)Ministry of Justice,Memorandum to the Justice Select Committee Post-Legislative Assessment of the Freedom of Information Act 2000-2011,December 2011,pp.59-60,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/217339/post-legislative-assessment-of-the-foi-act.pdf;Robert Hazell,Ben Wrothy&Mark Glover,The Impact of Information Act on Central Government in the UK:Does FOI Workl Palgrave Macmillan,2010,pp.161-180,p.266.
• (1)Freedom of Information Act 2000,pp.1-2,pp.6-7,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf.
• (2)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report,2016,p.13,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent_Freedom_of_Information_Commission_Report.pdf.
• (3)Freedom of Information Act 2000,p.26,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf;Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report.2016,p.14,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent_Freedom_of_Information_Commission_Report.pdf.
• (4)ICO,Section 45-Code of Practice-request Handling,03 June 2016,p.14,https://ico.org.uk/media/1624144/section-45-code-of-practice-request-handling-foia.pdf.
• (5)Secretary of State for Constitutional Affairs,Secretary of State for Constitutional Affairs'Code of Practice on the discharge of public authorities'functions under Part 1 of the Freedom of Information Act 2000,Issued under section 45 of the Act,25 November 2004,p.12,https://www.gov.uk/govemment/uploads/system/uploads/attachment.data/file/235286/0033.pdf.
• (6)ICO,Section 45-Code of Practice-request handling,03 June 2016,p.15,https://ico.org.uk/media/1624144/section-45-code-of-practice-request-handling-foia.pdf.
• (1))Freedom of Information Act 2000,p.20,http://www.legislation,gov.uk/ukpga/2000/36/pdfs/ukpga_20000036_en.pdf.
• (2)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report,2016,pp.20-25,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent_Freedom_of。Information_Commission^.Report.pdf.
• (3)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report.2016,pp.44-45,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent_Freedom_of_Information_Commission.Report.pdf.
• (4)2005~2014年为司法部,2015年起为内阁办公室。
• (1)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report,2016,p.16,https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent Freedom_of_Information_Commission_Report.pdf.
• (1)黑格尔:《法哲学原理》,商务印书馆,1982,第291页。
• (2)A.P.Tant,"The Campaign For Freedom of Information:A Participatory Challenge to Elitist British Government,"Public Administration,Vol.68,winter 1990,pp.481-482.
• (1)彼得·莱兰、戈登·安东尼:《英国行政法教科书》,杨伟东译,北京大学出版社,2007。第71页。
• (2)Tom Felle,"Freedom of Information in the UK-Opportunity and Threat,"Political Insight,April 2016,p.31.
• (3)Independent Commission on Freedom of Information,Independent Commission on Freedom of Information Report,2016,p.6,https;//www.gov.uk/government/uploads/system/uploads/attachment_data/file/504139/Independent.Freedom_of_Information.Commission.Report.pdf.
• (4)参见CFOI官方网站Stop FOI restrictions,https://www.cfoi.org.uk/campaigns/stop-foi-restrictions/.
• (5)约翰·阿克顿:《自由与权力》,侯健、范亚峰译,译林出版社。2015,第294页。
• (6)万鹏飞、饶诗韵:《美国联邦政府政务公开制度的实践及启示》,《经济与社会体制比较》2006年第2期,第89页。
• (1)乔万尼·萨托利:《民主新论》,上卷,冯克利、阎克文译,上海人民出版社,2015,第366~367页。
• (2)Francis Sejersted,2005,"Freedom of Information in Modern Society,"in IFLA Journal,31(4),pp.301-306;Alex Byyne,"Freedom of Access to Information and Freedom of Expression in a Pluralistic World,"IFLA Journal,25(4),p.224;Martin Bullinger,"Freedom of Expression and Information:An Essential Element of Democracy,"28 German Y.B.Int'1 L.88,1985,p.91.
• (3)参见联合国官方网站《世界人权宣言》,http://www.un.org/zh/universal-declaration-human-rights/index.html。
• (4)Alex Byyne,"Freedom of Access to Information and Freedom of Expression in a Pluralistic World,"in IFLA Journal,25(4),p.224.
• (5)Francis Sejersted,2005,"Freedom of Information in Modern Society,"in IFLA Journal,31(4),pp.302-303.