The problem is that I think it really guts the order-making power significantly, because it provides no incentive for government institutions to put forward their best case. If the decision is to refuse access, they can put forward.... You have to remember there are journalists who are well versed in how to navigate the access system, but there are others who are not.
A government institution can refuse based on one exemption. That can be reviewed by the Information Commissioner. She or he may disagree and make an order, and then once it gets to court, the government institution can pull out a bunch of other exemptions that they think apply, a bunch of other reasons.