Democratic governments might be required by law to disseminate information to the people. This is called governmental transparency. What is the burden of transparency? We propose a “pragmatic information theory of communication” that places information accessibility as a foundation of transparency. Using a game model—the Transparency Game—we show that the pragmatic theory is the only one that makes it difficult for governments to appear transparent while not actually being transparent. There are two important consequences of understanding transparency through the theory: (...) Accessible information must be actionable, and cognitive science plays a vital role in assessing the accessibility of information. These consequences can have implications for public policies that promote transparency. (shrink)