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Last reviewed on: 20 April 2026

As per the RT Act, Section 2(f) “information” means any material in any form, including records, documents, memos, e-mails, opinions, advices, press releases, circulars, orders, logbooks, contracts, reports, papers, samples, models, data material held in any electronic form and information relating to any private body which can be accessed by a public authority under any other law for the time being in force;

The information would mean anything which exists, in any form with a public authority. The specific instances – records, documents, memos, emails, opinions, advices, reports, samples, models - are merely meant to illustrate the broad scope. Clearly, file-noting is opinion and hence covered in the ambit of the Act. Legal or other opinions obtained by Public authority or various reports received by them are all covered.

Here, it suggests an important principle regarding private bodies. Information relating to any private body, which may not be covered by the definition of ‘Public Authority’ (given in Section 2 h), can be obtained through a public authority if the law allows the public authority to access it.

There is an additional view at this juncture.¹⁾

Thus, if any public authority has the right to ask for any information under the law from a private organization, the citizen can seek the information from the public authority.

A few illustrative examples of how this proviso can be exercised by the citizens:

• Information about a private bank can be obtained from the regulator - RBI - if the law requires the information to be filed.
• Information about a private unaided school – from the Education Department.
• Information about a Public Limited Company – from the Registrar of Companies or SEBI if the law empowers them to ask for it.
• Information about a Cooperative Society – from the Registrar of Cooperative Societies.
• Information about Trusts – from the Charities Commissioner.
• Information about various banks, including private banks – from Reserve Bank of India.

There is some ambiguity on the term ‘accessed’. It may mean any information which the authority can ask for under various provisions or the information which the authority is usually supposed to acquire under the law. There is an additional view at this juncture.²⁾

As an example: The Labour office requires certain information to be submitted at certain intervals – this is ‘Information’ as defined by the Act, and hence can be accessed. However, the labour office during an inspection or investigation, can access virtually all the records of an organisation which otherwise would not be done.

Some RTI activists argue that this proviso allows access to any information of a private organization through any Public authority by invoking the special investigative powers of the Public authority. Such a wide interpretation would actually mean that all private organizations could be forced to disclose all the information with them. This would be too wide an interpretation. Only the information ‘normally’ and routinely accessed by the Public authorities comes under the ambit of RTI.

However, all information with the Public authority is certainly information covered by the Right to Information Act. The Public authority holds the information on behalf of citizens. Thus, once any information is with a Public authority, it is ‘information’ available to any citizen under the Right to Information Act (subject to the exemptions of Section 8 of the Act). Repeatedly, the Act implicitly recognizes that the Government holds all information on behalf of the citizen.

Often, some Right to Information Act users expect an explanation or answer even if there is nothing on records available. This cannot be tenable. RTI is not Right to Interrogat. The information has to exist in the material form.

Often officials refuse to give information when a Right to Information request is framed as a question. This position has no basis in the law.

As an example, if an applicant asks: “What is the name of the Head of the Department?” or “What is the expenditure incurred on medical expenses in 2014 by the Organisation?” This is information available on record. However, if an applicant asks: “Why has the Municipal Corporation not repaired and maintained all roads?” or “What is the meaning of a certain rule?” or “Why was the judgment not given in my favour” etc., it must be noted whether such information exists on record. If it exists on the records it should be provided and if not, then the answer provided should be “There is no record of this”.

RTI Act Authentic Interpretation of the Statute, by Shailesh Gandhi

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What constitutes “information” under the RTI Act, 2005 — complete guide on the definition, scope, and key explanations:

1. Step 1: Section 2(f) — the statutory definition. (a) Section 2(f) of the RTI Act, 2005 defines “information” as: “information” means any material in any form, including records, documents, memos, e-mails, opinions, advices, press releases, circulars, orders, logbooks, contracts, reports, papers, samples, models, data material held in any electronic form and information relating to any private body which can be accessed by a public authority under any other law for the time being in force, (b) the definition is broad and inclusive — it covers: (i) any material (in any form — physical, electronic, digital, audio, video, etc.), (ii) records and documents (files, registers, ledgers, correspondence, etc.), (iii) memos and e-mails (internal communications — and external correspondence), (iv) opinions and advices (legal opinions, expert advice, internal notes — and file notings), (v) press releases and circulars (official communications — and policy documents), (vi) orders (administrative orders, judicial orders, quasi-judicial orders), (vii) logbooks and contracts (operational records — and commercial agreements), (viii) reports and papers (research reports, inquiry reports, audit reports, committee reports), (ix) samples and models (physical samples — and models — e.g., a sample of adulterated food — or a model of a building), (x) data material in electronic form (databases, spreadsheets, digital records, server logs, CCTV footage), (xi) information relating to private bodies (which can be accessed by a public authority — under any other law — e.g., a private company's environmental report — accessed by the Pollution Control Board — under the Environment Protection Act).
2. Step 2: Key aspects of the definition. (a) “any material in any form”: the form does not matter — the information can be in physical form (paper, file, register), electronic form (e-mail, database, server log), audio form (recording, phone call), video form (CCTV, video), or any other form — the PIO cannot refuse — on the ground that the information is not in a particular form, (b) “held by a public authority”: the information must be held by — or under the control of — a public authority — defined under Section 2(h) — which includes government departments, public sector undertakings, and substantially financed bodies, © “information relating to private bodies”: the RTI Act covers private bodies — but only indirectly — if the information can be accessed by a public authority — under any other law — e.g., (i) a private company's environmental compliance report — accessed by the Pollution Control Board, (ii) a private school's fee structure — accessed by the Education Department, (iii) a private hospital's bed availability — accessed by the Health Department — the citizen can file RTI with the public authority — to get the private body's information — that the public authority can access.
3. Step 3: File notings — are they information? (a) yes — file notings are information — under Section 2(f) — and the citizen has the right to access file notings — this was a major controversy — and the government attempted to exclude file notings — through an amendment — but the amendment was not passed — and the CIC and the courts have held that file notings are information — and are accessible — under the RTI Act, (b) the CIC has held in multiple orders (including Adesh Pratap Singh Kairon v. State of Punjab — and subsequent orders) that file notings are information — and the PIO must provide them — unless they are exempt under Section 8, © the Supreme Court has upheld (in CBSE v. Aditya Bandopadhyay — 2011) that file notings are information — but the opinions and advices contained in the file notings may be exempt — under Section 8(1)(d) (commercial confidence) — or Section 8(1)(j) (personal information) — depending on the content.
4. Step 4: What is NOT information? (a) the RTI Act does not require the PIO to: (i) create information (the PIO is not required to create new information — or to compile information — or to answer questions — that require analysis or research — under Section 6(1) — the PIO must provide information that is held — not create new information), (ii) answer hypothetical questions (the PIO is not required to answer questions — that are hypothetical — or that seek opinions — or that ask for advice — the PIO must provide factual information — that is held by the public authority), (iii) provide information that is not held (if the information is not held by the public authority — the PIO must inform the applicant — under Section 6(3) — and transfer the application — to the public authority that holds the information), (b) the CIC has held that: (i) the PIO is not required to answer questions (the RTI Act is not a tool for obtaining answers to questions — but for accessing records — and documents — the applicant should seek specific information — not ask questions), (ii) the PIO is not required to explain (the PIO must provide the information — not explain the information — or interpret the information — the applicant can seek clarification — through a separate application — or through the appeal process).
5. Step 5: Information in electronic form. (a) the RTI Act covers information in electronic form — including: (i) e-mails (official e-mails — sent or received by the public authority), (ii) databases (government databases — like the Aadhaar database, the NPR, the electoral roll, the land records, etc.), (iii) server logs (server access logs — and audit logs — and security logs), (iv) CCTV footage (CCTV recordings — of public offices — and public places — under the control of a public authority), (v) digital records (scanned documents — and digital files — and electronic registers), (b) the PIO must provide the information in the electronic form — if the applicant requests — under Section 7(1) — and the CIC has held that the PIO must provide: (i) the e-mail (if held by the public authority — and not exempt), (ii) the database extract (if the applicant seeks specific data — from the database — and the data is not exempt), (iii) the CCTV footage (if the footage is held — and is not exempt — under Section 8(1)(g) — or Section 8(1)(j)).
6. Step 6: Information relating to private bodies. (a) the RTI Act covers private bodies — indirectly — under Section 2(f) — “information relating to any private body which can be accessed by a public authority under any other law for the time being in force”, (b) examples: (i) a private company's environmental compliance report (accessed by the Pollution Control Board — under the Environment Protection Act, 1986), (ii) a private school's fee structure and admission records (accessed by the Education Department — under the Right to Education Act, 2009), (iii) a private hospital's bed availability and patient records (accessed by the Health Department — under the Clinical Establishments Act, 2010), (iv) a private telecom company's call records (accessed by the police — under the Criminal Procedure Code, 1973), (v) a private bank's loan records (accessed by the RBI — under the Banking Regulation Act, 1949 — or by the Income Tax Department — under the Income Tax Act, 1961), © the citizen can file RTI with the public authority (that can access the private body's information — and the public authority must provide the information — unless exempt under Section 8), (d) the CIC has held (in several orders) that the public authority cannot refuse — on the ground that the information belongs to a private body — if the public authority can access the information — under any other law.
7. Step 7: Practical tips. (a) be specific (seek specific records — not vague information — and mention the document type — and the date — and the reference number), (b) seek file notings (if you want to know the decision-making process — seek file notings — which are information — under Section 2(f)), © seek electronic records (if the information is in electronic form — request the electronic format — e.g., the e-mail, the database extract, the CCTV footage), (d) seek private body information (if the information is with a private body — file RTI with the public authority — that can access the information — under any other law), (e) do not ask questions (the RTI Act is for accessing records — not for obtaining answers — ask for specific documents — not for opinions or explanations), (f) Example: A citizen filed RTI with the Pollution Control Board — asking for the environmental compliance report of a private factory — the PIO refused — saying the information belongs to a private body — the citizen filed a first appeal — the FAA held that the information is accessible — under the Environment Protection Act — and directed the PIO to provide the report — the citizen got the report — which showed that the factory was violating the environmental norms — and the citizen used the report — to file a complaint — and to get the factory penalised.

See What is Information and RTI Act Complete Guide.