Let's use a hypothetical case. A particular department is using preparation fees as a way to discourage requests. In other words, you ask for a search on a particular set of documents and they come back to you and say it is going to cost $5,000. As a requester you might want to think twice about pressing on with that. So you narrow it down even further, not through the assistance of the department, but because you can't afford it. So you get it down to $250. That is against the spirit of the act.
There is no recourse for this, even when I get a complaint. We do have considerable influence through our investigative process on dealing with fees, for instance. In this case I could simply order the department to waive its fees or forfeit its fees if it's a deliberate abuse, of trying not to release information. In some cases they are trying to buy time to manage their workload. There is a resource issue related to this. If they ask this requester to pay more than he might pay, then he might go away in the meantime so they can get on with some of the other stuff.
The order-making powers for administrative purposes would be to deal with those kinds of issues.