I think you're touching on a very sensitive topic, which is the creation of records and, again, not providing training, proper retention policies and proper information management policies.
However, this is the way that people work. If we are to remove transitory documents from access, which is one of the proposals—to change the act to official documents—I can tell you that there's not going to be a lot of information provided under the current system. I'm not saying this is a bad idea. I haven't found one jurisdiction that has such a restrictive definition of records. Something needs to be done, but I'm not sure that's the solution, because right now people are not creating official records. They are dealing with decisions and with policy through what we often call transitory exchanges, because it's through emails and phone calls.