In my opinion--this is really in accordance with international standards--access to information should not be framed on a cost-recovery basis. However, there are some models where this is done. In B.C. there is cost recovery for commercial users. Normally I would suggest that this be done with a complement of understanding that there should be a waiving of certain fees for public interest or non-governmental organizations or academic-type research work.
That being said, I would suggest that the most effective means of dealing with complaints would be to have discretion on which complaints our office investigates. Right now under the legislation there's an obligation to investigate every single complaint. Having discretion would help, and having the discretion to not deal with frivolous or vexatious complaints would help. It's something that is found in other pieces of legislation.
In my view, those two measures would be more effective than cost recovery.