Servants Disclosure Protection Act
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STRENGTHENING THE PROTECTION OF THE PUBLIC INTEREST WITHIN THE PUBLIC SERVANTS DISCLOSURE PROTECTION ACT Report of the Standing Committee on Government Operations and Estimates Tom Lukiwski Chair JUNE 2017 42nd PARLIAMENT, FIRST SESSION Published under the authority of the Speaker of the House of Commons SPEAKER’S PERMISSION Reproduction of the proceedings of the House of Commons and its Committees, in whole or in part and in any medium, is hereby permitted provided that the reproduction is accurate and is not presented as official. This permission does not extend to reproduction, distribution or use for commercial purpose of financial gain. Reproduction or use outside this permission or without authorization may be treated as copyright infringement in accordance with the Copyright Act. Authorization may be obtained on written application to the Office of the Speaker of the House of Commons. 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Also available on the Parliament of Canada Web Site at the following address: http://www.parl.gc.ca STRENGTHENING THE PROTECTION OF THE PUBLIC INTEREST WITHIN THE PUBLIC SERVANTS DISCLOSURE PROTECTION ACT Report of the Standing Committee on Government Operations and Estimates Tom Lukiwski Chair JUNE 2017 42nd PARLIAMENT, FIRST SESSION STANDING COMMITTEE ON GOVERNMENT OPERATIONS AND ESTIMATES CHAIR Tom Lukiwski VICE-CHAIRS Yasmin Ratansi Erin Weir MEMBERS Ramez Ayoub Kyle Peterson Alupa Clarke Brenda Shanahan Francis Drouin Nick Whalen Kelly McCauley OTHER MEMBERS OF PARLIAMENT WHO PARTICIPATED William Amos Elizabeth May Pierre Breton Joyce Murray Greg Fergus Robert-Falcon Ouellette Peter Fonseca Michel Picard Raj Grewal Jean-Claude Poissant Stéphane Lauzon Wayne Steski Paul Lefebvre Marwan Tabbara Karen Ludwig Dan Vandal Steven Mackinnon iii CLERK OF THE COMMITTEE Phillippe Grenier-Michaud LIBRARY OF PARLIAMENT Parliamentary Information and Research Service Audrey Ann Bélanger Baur, Analyst Raphaëlle Deraspe, Analyst In collaboration with: Francis Lord, Analyst iv THE STANDING COMMITTEE ON GOVERNMENT OPERATIONS AND ESTIMATES has the honour to present its NINTH REPORT Pursuant to its mandate under Standing Order 108(2), the Committee has studied the Public Servants Disclosure Protection Act and has agreed to report the following: v TABLE OF CONTENTS STRENGTHENING THE PROTECTION OF THE PUBLIC INTEREST WITHIN THE PUBLIC SERVANTS DISCLOSURE PROTECTION ACT .............................................. 1 EXECUTIVE SUMMARY ................................................................................................. 1 INTRODUCTION ............................................................................................................. 3 PART I – PROTECTING THE PUBLIC INTEREST ......................................................... 7 1.1 Provisions of the Act Concerning the Disclosure of Wrongdoing ......................... 7 1.1.1 What May Be Disclosed ............................................................................... 7 1.1.1.1 The Definition of Wrongdoing .............................................................. 7 1.1.1.2 When Is Wrongdoing Serious Enough? .............................................. 8 1.1.2 To Whom May a Disclosure Be Made? ..................................................... 11 1.1.2.1 Internal Disclosure Procedures ......................................................... 11 A. Risk of Conflicts of Interest .................................................................. 12 B. Values and Ethics Codes .................................................................... 13 C. Selected Examples of Departments and Agencies ............................. 14 1.1.2.2 Other Resolution Mechanisms .......................................................... 17 1.1.2.3 Public Sector Integrity Commissioner and its Office .......................... 17 1.1.2.4 Public Disclosures ............................................................................. 20 1.1.3 Am I Protected? ......................................................................................... 21 1.1.3.1 Access to Legal Advice ..................................................................... 22 1.1.4 Investigations of Wrongdoing .................................................................... 22 1.1.4.1 Commissioner’s Duty and Investigative Powers ................................ 22 A. Investigation Time Frames .................................................................. 24 B. Commissioner’s Jurisdiction ................................................................ 25 C. Commissioner’s Discretionary Authorities ........................................... 25 1.1.4.2 Auditor General of Canada ................................................................ 26 1.1.5 Corrective Measures ................................................................................. 26 1.2 Solutions Proposed by Witnesses ...................................................................... 27 1.2.1 Expand the Definition of the Term ‘Wrongdoing’ ....................................... 27 1.2.2 Increase the Number of Protected Disclosure Avenues ............................ 27 1.2.2.1 An Accountable Internal Disclosure Mechanism ............................... 28 vii 1.2.2.2 Clarifying Public Disclosure Provisions ............................................. 29 1.2.3 A Merit-Based Appointment ....................................................................... 29 1.2.4 Repealing the Requirement of Good Faith ................................................ 30 1.2.5 Ensuring Effective Protection ..................................................................... 30 1.2.6 Improving Investigation Processes ............................................................ 31 1.2.7 Improving the Application of Corrective Measures .................................... 33 1.2.8 How Will the Public Know That Justice Is Administered ............................ 34 1.2.8.1 Public Recognition Program and Reward System ............................. 34 1.3 Committee’s Observations and Recommendations ........................................... 34 PART II – PROTECTING THOSE THE DISCLOSURE RENDERS VULNERABLE...... 39 2.1 Provisions of the Act to Protect Whistleblowers ................................................. 39 2.1.1 Duty to Protect and Support ...................................................................... 39 2.1.1.1 Ramifications of a Disclosure ............................................................ 41 2.1.1.2 Protection of Whistleblowers from Reprisals ..................................... 42 2.1.1.3 Selected International Examples of Whistleblower Protection ........... 43 2.1.2 Identifying and Addressing Reprisals ........................................................ 44 2.1.2.1 Redesigned but Not Concealed ........................................................ 45 A. Spillover Reprisals ............................................................................... 45 2.1.2.2 Reprisal Complaint Investigations ..................................................... 46 A. Gatekeeper of the Tribunal .................................................................. 50 2.1.2.3 Before the Public Servants Disclosure Protection Tribunal ............... 51 A. Informal and Expeditious Procedures .................................................. 56 B. The Burden of Proof ............................................................................ 57 2.1.3 The Administration of Justice ..................................................................... 58 2.1.3.1 Interim Reliefs ................................................................................... 58 2.1.3.2 Remedies and Sanctions .................................................................. 58 2.1.4 Legal Framework ....................................................................................... 59 2.1.4.1 The Short Reach of the Law .............................................................. 59 A. Contractors .......................................................................................... 60 2.1.4.2 A Complex Legal Framework ............................................................ 60 2.2 Solutions Proposed by Witnesses ...................................................................... 61 2.2.1 Duty to Protect and Support ...................................................................... 61 2.2.2 Recognizing Reprisals and Providing Effective Protection ........................ 62 viii 2.2.2.1 Remedies and Sanctions .................................................................. 63 2.2.2.2 Legal Costs ......................................................................................