Protected Disclosure Act 2012
Protected Disclosures (Whistleblowers) Procedures for the City of Boroondara
2015
Responsible Directorate:Chief Executive Office
Authorised By:ELT
Date of Adoption:22 September 2015
Review Date:October 2019
Revocation/Sunset Date:Nil
Policy Type: Administrative
Protected Disclosures (Whistleblowers) Procedures 2015
1
Table of contents
1.Introduction
1.1.Statement of support to protected disclosures (whistleblowers)
1.2.Purpose of these procedures
2.Objects of the Act
3.The reporting system - making a disclosure
3.1.What is a disclosure?
3.2.Procedures for making a disclosure
3.3.What is not a disclosure
3.4.Who can make a disclosure?
3.5.How can a disclosure be made?
3.6.Who can receive disclosures?
3.7.About whom can a disclosure be made?
3.8.About what can a disclosure be made?
3.9.Improper conduct by a public body or public officer in the performance of their functions as a public body or public officer
4.Definitions of key terms
4.1.Improper conduct
4.2.Corrupt conduct
4.3.Detrimental action
4.3.1Detrimental action taken in reprisal for a protected disclosure
4.3.2Tests for improper conduct or detrimental action
5.Handling disclosures
5.1.Receiving a disclosure
5.2.Assessing a disclosure
5.3.Assessment decisions
5.4.Notification to IBAC
5.5.Protection for public officers
6.IBAC assessment
6.1.IBAC's determination
6.2.Further contact about investigations
6.3.Providing information at the conclusion of an investigation
6.4.The Freedom of Information Act
7.Protections for persons making disclosure
7.1.Protections provided under Part 6 of the Act
7.2.Additional limitations on protections
7.3.Offences for making an unauthorised disclosure
8.The reporting system
8.1.Contact persons within the City of Boroondara
8.2.Alternative contact persons
9.Roles and responsibilities
9.1.Employees
9.2.Protected Disclosure Coordinator
9.3.Receipt of disclosures by staff
9.4.Welfare manager
10.Confidentiality
10.1.Information management
11.Managing the welfare of the discloser
11.1.Commitment to protecting discloser
12.Collating and publishing statistics
13.Review
Protected Disclosures (Whistleblowers) Procedures 2015
1
1.Introduction
1.1.Statement of support to protected disclosures (whistleblowers)
The City of Boroondara is committed to the aims and objectives of the Protected Disclosure Act 2012 (the Act). It does not tolerate improper conduct by its employees, officers or members, nor the taking of reprisals against those who come forward to disclose such conduct.
The City of Boroondara recognises the value of transparency and accountability in its administrative and management practices, and supports the making of disclosures that reveal corrupt conduct, conduct involving a substantial mismanagement of public resources, or conduct involving a substantial risk to public health and safety or the environment.
The City of Boroondara will take all reasonable steps to protect people who make such disclosures from any detrimental action in reprisal for making the disclosure.
1.2.Purpose of these procedures
These procedures establish a system for reporting disclosures of improper conduct or detrimental action by the City of Boroondara or its employees. The system enables such disclosures to be made to the Protected Disclosure Coordinator or to the Independent Broad-based Anti-corruption Commission (IBAC). Disclosures may be made by any person. This includes a person who is a member, officer or employee of the City of Boroondara.
Details of all contact information for the Protected Disclosure Coordinator are listed in Annexure A.
These procedures are designed to complement normal communication channels between supervisors and employees. Employees are encouraged to continue to raise appropriate matters at any time with their supervisors. As an alternative, employees may make a disclosure of improper conduct or detrimental action under the Act in accordance with these procedures.
For conduct not meeting the protected disclosure provisions of the Act the City of Boroondara have contracted STOPline Pty Ltd. Complaints or allegations outside the Act criteria can be reported direct to STOPline (See Annexure A for contact information). The City of Boroondara offers the same anonymity provisions and assurance that all reasonable steps will be taken to protect anyone making such reports.
The services of STOPline is also available to all employees to seek advice on how to report matters relating to improper conduct should it be considered necessary to go “outside” the City of Boroondara.
2.Objects of the Act
By way of background, the Protected Disclosure Act 2012 (Act) commenced operation on 10 February 2013, replacing the former Whistleblowers Protection Act 2001 (Whistleblowers Act) and amending the Ombudsman Act 1973. Similarly to the Whistleblowers Act, the Act aims to protect people who make disclosures about improper conduct in the public sector.
The Act forms part of the new integrity reforms in Victoria, which also include the establishment of IBAC, the Victorian Inspectorate and the Accountability and Oversight Parliamentary Committee. The Act aims to provide a simplified and strengthened protected disclosure regime. The key purposes of the Act is to re-introduce a new framework to:
- encourage and facilitate disclosures of:
improper conduct by public officers, public bodies and other persons
detrimental action taken in reprisal for a person making a disclosure under the Act
- provide protection for:
persons who make disclosures
persons who may have suffered detrimental action in reprisal for a disclosure
- provide for the confidentiality of:
the content of disclosures
the identity of persons who make disclosures
3.The reporting system - making a disclosure
3.1.What is a disclosure?
A disclosure is a report made by a person about improper conduct of public bodies or public officers to any of the organisations specified in Part 2 of the Act. A disclosure can also be made about detrimental action against a person by public bodies or public officers in reprisal for the making of a protected disclosure by any person.
A complaint or allegation that is already in the public domain will not normally be a protected disclosure, for example if the matter has already been subject to media or other public commentary. The term 'disclosure' is interpreted under the Act in the ordinary sense of the word as a 'revelation' to the person receiving it.
The disclosure can relate to improper conduct or detrimental action against a person that may already have taken place, may be occurring now, or the public officer or public body may be going to do it in the future. Disclosures can be made about conduct that occurred prior to the commencement of the Act on 10 February 2013.
A disclosure may be made in accordance with the requirements of Part 2 of the Act, even if it is also a complaint, notification or disclosure made under another Act.
3.2.Procedures for making a disclosure
For a disclosure to be a protected disclosure it must be made in accordance with the requirements of Part 2 of the Act, and in accordance with the prescribed procedure, as outlined below.
Who can make a disclosure / The disclosure can only be made by certain personsHow to make a disclosure / Must be made verbally, in writing, or in some cases, online, in accordance with specific procedures
Who to make a disclosure to / The disclosure can only be made to certain persons
Who disclosures can be made about / Must be made only about the conduct of public bodies or public officers performing public functions
What disclosures can be made about / Must be about improper conduct or detrimental action taken against a person
3.3.What is not a disclosure
It will not be a protected disclosure if:
- it is made to an entity that cannot receive disclosures, or notified to IBAC by such an entitybecause such disclosures or notifications do not meet all the requirements under Part 2of the Act
- the disclosure was made about a Public Interest Monitor, the Victorian Inspectorate, aVictorian Inspectorate Officer, or a court
- the discloser expressly states in writing that the disclosure is not a disclosure under the Act
- the disclosure is not a disclosure under the Act if it was made by an officer oremployee of an investigating entity in the course of his/her duties or functions unlessthis person expressly states in writing that it is a disclosure and the disclosure isotherwise made in accordance with the Act requirements.
- the disclosure does not meet all the requirements under Part 2 of the Act and theprescribed procedures in the Regulations outlined above.
If the City of Boroondara receives any disclosures which do not meet all of the requirements of Part 2 of the Act or the prescribed procedures in the Regulations, Boroondara City Council will not be required to consider whether it is a protected disclosure under the Act. However, the Council will always consider whether it would be appropriate to inform the discloser how to make the disclosure in a way that would comply with the requirements of the Act and the Regulations in order to ensure that persons are properly afforded the opportunity to receive any appropriate protections available to them under the Act.
In addition, the City of Boroondara is required to consider whether a disclosure that does not meet the requirements of the Act and the Regulations should be treated as a complaint, notification or referral to the Council in accordance with any other laws or internal policies and procedures.
3.4.Who can make a disclosure?
Any person can make a disclosure about improper conduct by public bodies and public officers. This includes a person who is a member, officer or employee of a public body or public officer. However, the making of disclosure is not limited only to ‘internal’ disclosers.
A company or a business cannot make a disclosure. The person making the disclosure must be an individual or a group of individuals making joint disclosures.
Making a joint disclosure overcomes the following limitation on the protections provided by the Act. The protections in sections 39, 40 and 41 in Part 6 of the Act are only provided to the person who makes a disclosure. This means that if a person makes the disclosure by ‘notifying’ the organisation on behalf of another person, then it is the ‘notifier’ who may receive those protections, not the person on whose behalf they have made the disclosure. The person on whose behalf the disclosure has been made will only be entitled to protection against detrimental action taken against them in reprisal for a disclosure made by the ‘notifier’.
A disclosure can be made anonymously. However, this creates potential difficulties in being able to assess whether a complaint is a disclosure.
A person can also make a disclosure in circumstances where they cannot identify the person or the organisation to which the disclosure relates.
3.5.How can a disclosure be made?
A person may make a disclosure under Part 2 of the Act verbally or in writing. The disclosure may also be anonymous.
Verbal disclosure
A person can make a verbal disclosure:
- in person
- by phone
- by leaving a voice mail message
- by any other form of electronic communication that does not require writing (note thatan email is considered to be a written disclosure).
The disclosure must be made in private. This means that the person making the disclosure must reasonably believe that only the following people are present or able to listen to the conversation:
- the person making the disclosure
- a lawyer representing the person (if any)
- one or more people to whom a disclosure can be made under the Act orRegulations.
This does not preclude a group of individuals making of a joint disclosure at the one time.
If the disclosure is made verbally, the City of Boroondara will ensure that the person receiving the disclosure makes notes at the time recording the disclosure. This person may also record the conversation, but should only do so with the discloser’s permission or by giving prior warning that the conversation will be recorded.
Written disclosure
A written disclosure can only be provided to the City of Boroondara by:
- personal delivery to the office of the City of Boroondara
- mail addressed to the office of the City of Boroondara
- email to the email address of the office of the City of Boroondara, or to the official emailaddress of a person nominated in these procedures to receive a disclosure.
IBAC and the Ombudsman can also accept a written disclosure via an online form. Disclosures cannot be made by fax.
Anonymous disclosure
A discloser need not identify themselves to the organisation to make a disclosure to that organisation under the Act.
An anonymous disclosure can be made by using unverifiable email addresses, through anonymous phone calls or in a face-to-face conversation or meeting where the person refuses to identify themselves (provided that meeting or conversation takes place ‘in private’ in accordance with the PD Regulations).
If the disclosure comes from an email address where the identity of the person making the disclosure cannot be determined, the disclosure should be treated as an anonymous disclosure.
3.6.Who can receive disclosures?
Disclosures of improper conduct or detrimental action by the City of Boroondara or its employees, may be made to the Protected Disclosure Coordinator.
The following Officers of Council can receive disclosures:
- Chief Executive Officer; and
- Protected Disclosure Coordinator
The Manager Governance has been appointed as the Protected Disclosure Coordinator.
The Protected Disclosure Coordinator will be the main contact point within the City of Boroondara.
3.7.About whom can a disclosure be made?
Disclosures can be made about public bodies or public officers. For the purposes of the Act the City of Boroondara is a public body and Councillors and Council employees are public officers.
The City of Boroondara can only deal with disclosures which concern Boroondara City Council, its employees, staff or officers.
Disclosures about improper conduct or detrimental action by the Boroondara City Council’s Councillors must be made to the IBAC or to the Ombudsman. Those disclosures may not be made to the Council.
Disclosures about improper conduct or detrimental action by Boroondara City Council or its employees and staff may be made to City of Boroondara Council or one of 4 external authorities:
- the IBAC;
- the Ombudsman in relation to limited types of disclosures;
- the Victorian Inspectorate in relation to limited types of disclosures; or
- the Chief Commissioner of Police in relation to limited types of disclosures.
In most circumstances, disclosures about the Council, its employees, officers or staff should be made to Boroondara City Council or to the IBAC.
Different procedures apply to the receiving body as detailed in section 8.2 of these procedures.
If the disclosure concerns another public body or employees, members, officers or staff of that other public body, it has not been made in accordance with Part 2 of the Act and cannot be treated as a protected disclosure under the Act. However, if such a disclosure is made to Boroondara City Council, the Council will take reasonable steps to direct the discloser to the (or an) other body which is able to receive a disclosure about that person or body under the Act (also see the table at 8.2). This may not be possible if, for example, the allegation received is made from an anonymous source and the source has not provided any contact details to Boroondara City Council. Where in doubt, a discloser should make their disclosure to the IBAC.
3.8.About what can a disclosure be made?
A disclosure must be about the conduct of a person, public officer or public body in their capacity as a public body or public officer as outlined in the following diagram.
The alleged conduct is either improper conduct or detrimental action taken against a person in reprisal for a protected disclosure / AND EITHER / The information shows or tends to show that the improper conduct or detrimental action against a person has occurred, is occurring, or is proposed to be engaged in by a person / OR / The discloser believes on reasonable grounds the information shows or tends to show the improper conduct or detrimental action against a person has occurred, is occurring, or is proposed to be engaged in by a personIn assessing whether there is improper conduct or detrimental action, the City of Boroondara will look critically at all information about the alleged conduct and about the discloser. Useful preliminary questions to be used include:
- What is the discloser’s connection to the alleged conduct - are they a victim, a witness,or a participant?
- How did they come to know about the conduct - were they directly involved in it, didthey observe it happening to another person, did someone else tell them about it?
- How detailed is the information provided - is there sufficient information to enable a determination to be whether there is improper conduct or detrimental action?
- How reliable is the information - is it supported by other information?
3.9.Improper conduct by a public body or public officer in the performance of their functions as a public body or public officer
Corrupt conduct and specified conduct definitions both limit improper conduct of a Council staff and Councillors in the ‘performance of their functions’ as a public officer or public body, to circumstances in which they have breached ‘public trust’.
A person acting in their official capacity is exercising ‘public power’ that is derived from their public office holding and may be controlled or influenced by legislative provisions, administrative directions, or constitutional principles or conventions.
‘Public trust’ is a concept that provides the basis ‘for obligations of honesty and fidelity in public officers that exist to serve, protect and advance the interests of the public’.[1]
Members of the community must rely on and trust their officials to act honestly, impartially and disinterestedly. In doing so, expectations are held that officials will not use their official position for personal advantage, or exercise the powers or the influence of office for collateral or extraneous reasons nor in a manner that is partisan where there is a duty not to favour a person or group.[2]
A person making a disclosure needs to identify that there is a link between the person’s alleged improper conduct and their function as a public officer.
4.Definitions of key terms
Three key concepts in the reporting system are improper conduct, corrupt conduct and detrimental action. Definitions of these terms are set out below.
4.1.Improper conduct
A disclosure may be made about improper conduct by a public body or public officer. Improper conduct is defined in section 4 of the Act to mean: