Not that it matters
It only takes one to download it, and repost it some place and there is no way to know the number even if they log every click.
Here's why Australia's government wants the telecoms industry to do its metadata collection for it: it can't read its own syslogs. Following an astonishing cock-up earlier this year, in which the Department of Immigration published the private details of thousands of asylum seekers in a statistical publication meant only to …
“the department believes that if a person has downloaded or saved the report, they can still access the personal information”
No really ? And how many meetings did it take for them to realize that ? Did they have to go to the nearest Helldesk drone to ask confirmation ?
Could somebody please visit them with a cluebat ? Made of iron, preferably.
Persons downloading the report might be able to access the personal data if the document had some kind of embedded queries to a database rather than the data itself (Some pieces of report creation software will do this so it appears that the document is always fresh).
There is also the possibility (But I highly doubt it) that the document could have had some kind of DRM scheme attached to it (such as Microsoft AD-RMS)