Public Interest Disclosures Act, 2017

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THE PUBLIC INTEREST DISCLOSURES ACT, 2017 
 
 
 
  
  
 
 
 
CONTENTS 
_____________ 
 
CHAPTER I 
 
PRELIMINARY 
1. Short title, extent and commencement. 
2.    Definitions. 
CHAPTER II 
 
PUBLIC INTERESTDISCLOSUREAND INQUIRY IN RELATION 
THERETO 
3.    Public interest disclosure. 
4.    Preliminary inquiry. 
5.    Matters not to be inquired by Competent Authority. 
6. Exemption from disclosure. 
CHAPTER III 
 
COMPETENT AUTHORITY 
 
7.    Powers of Competent Authority. 
8.    Organizations etc., to establish systems. 
9.    All authorities to assist Competent Authority. 
CHAPTER IV 
 
PROTECTION OF COMPLAINANT AND WITNESSES 
10. Protection against adverse actions etc. 
11. Protection of witnesses etc. 
12. Protection of identity or complainant. 
13. Power to issue interim orders. 
 
 
 

 
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CHAPTER V 
 
OFFENCES AND PENALTIES 
14. Penalty for furnishing incomplete or incorrect or misleading comments or explanation or 
report. 
15. Punishment for revealing identity of complainant. 
16. Punishment for false or frivolous disclosure. 
17.    Punishment for Head of Organization. 
18.    Offences by companies. 
19.    Court to take cognizance. 
CHAPTER VI 
 
MISCELLANEOUS 
 
20.    Protection of action taken in good faith. 
21.    Report on disclosures. 
22.    Power of Government to make rules. 
23.    Power of Competent Authority to make regulations. 
24. Rules to be laid before Parliament. 
25.    Overriding effect. 
26.    Removal of difficulty. 
  
 
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THE PUBLIC INTEREST DISCLOSURES ACT, 2017 
 
[2nd November, 2017] 
 
ACT NO. XXXVI of 2017 
 
 
An Act to provide a mechanism for public interest disclosures and protection of 
persons making such disclosures 
 
 
WHEREAS it is expedient to provide a mechanism for public interest disclosures to prevent 
corruption and corrupt practices, protect persons making such disclosures and for matters connected 
therewith or ancillary thereto; 
 
It is hereby enacted as follows:⸺ 
 
CHAPTER I 
 
PRELIMINARY 
 
1. Short title, extent and commencement.  (1) This Act may be  called the Public Interest 
Disclosures Act, 2017. 
 
(2) It extends to the whole of Pakistan. 
 
(3) It shall come into force at once. 
 
2. Definitions. In this Act, unless there is anything repugnant in the subject or context,— 
 
(a) “Competent Authority” means the respective Head of the Organization;  
 
(b) “complainant” means a person making complaint relating to disclosure under 
this Act;  
 
(c)  “disclosure” means a complaint relating to,— 
 
(i) willful misuse of power or willful misuse of discretion by virtue of  
which substantial loss is caused to the Government or substantial 
wrongful gain accrues to the public servant to third party: and 
 
(ii) commission of or an attempt to commit an o ffence of corruption or 
corrupt practices as defined in the National Accountability Bureau 
Ordinance, 1999 (XVIII of 1999) or any other law relating to corruption 
and includes the offence committed through electronic mail or device; 
 
(c)  “Government” means the Federal Government; 
 
(d)  “Head of Organization ” means the Head of Organization con cerned with  
disclosure: 
 
 
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(e)  “Organization” means: 
 
(i)  a Ministry, Division, Department or an Office of the Government; 
 
(ii)  a corporation, company, body, an institution or enti ty controlled or 
established by the Government; 
 
(iii)  institutions established under the Constitution except the institutions  
which exclusively relate to Province; 
 
(iv)  any other public sector authority body, institution or entity not covered 
under paragraphs (i) and (iii) above which the Government may, by 
notification in the official Gazette, specify for the purposes of this Act; 
 
(v)  any private sector body company or entity including NGOs of national 
and public importance which the Government may, by notification in 
the official Gazette, specify for the purposes of this Act. 
 
(f)  “person” means any person who is, or has been holding or has held, a post or 
office in any public corporation, bank, financial institution, undertaking or other 
organization established controlled or administered by or under the authority of 
Government; 
 
(g)  “public servant” for the purposes of this Act, means a public servant as defined 
in section 21 of the Pakistan Penal Code, 1860 (Act XLV of 1860) and includes 
an employee of any corporation or other body or organization setup, controlled 
or administered by, or under the authority of the Government; and 
 
(h)  “prescribed” means prescribed by rules made by the Government under this Act. 
 
CHAPTER II 
 
PUBLIC INTEREST DISCLOSURE AND INQUIRY IN RELATION 
THERETO 
 
3. Public interest disclosure.⸺(1) Any person may make a public interest disclosure before 
the Competent Authority. 
 
(2) A disclosure under sub-section (1) shall be made in good faith and shall be substantiated 
by a declaration that the information being disclosed or allegations being leveled by him are true to 
the best of his knowledge and belief. 
 
(3) The disclosure shall be in the prescribed form and duly supported by relevant documents, 
or other materials, if any. 
 
(4) The Competent Authority may, if it deems fit, call for further information or particulars 
from the Complainant. 
 
(5) Anonymous or pseudonymous disclosures shall not be entertained or processed by the 
Competent Authority. 
 
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(6) The Competent Authority may designate or appoint such officers as may be notified any 
officer not below BPS-17 or equivalent to receive complaints. 
 
4. Preliminary inquiry. The Competent Authority shall conduct a preliminary inquiry into the 
disclosure to ascertain the identity and credibility of the Complainant in prescribed manner. 
 
5. Matters not to b e inquired by Competent Authority. ⸺The Competent Authority shall 
not inquire into following matters, namely:— 
 
(a)  any matter specified or an issue raised in a disclosure has been determined by a 
court or tribunal authorized to determine the same; or 
 
(b)  matter in respect of which a formal and public inquiry has been ordered under 
the law; 
 
(c)  in respect of a matter which has been referred for inquiry under the law. 
 
(2) Nothing in this Act shall be construed as empowering the Competent Authority to question, 
in any inquiry under this Act, any bona fide action or bona fide discretion including administrative or 
statutory discretion exercised in discharge of duty by the employee or person concerned. 
 
6. Exemption from disclosure. Disclosure shall not be made if the information,— 
 
(i)  is likely to prejudicially affect,— 
 
(a)  the sovereignty and integrity of Pakistan; 
 
(b)  the security, strategic or economic interests of the Pakistan: or 
 
(c)  relations with foreign states; 
 
(ii)  may lead to incitement to offence; 
 
(iii)  contains Cabinet or Cabinet Committees papers including records of 
deliberations of the Cabinet Ministers, secretaries and other offices except as 
permitted by the Cabinet Secretary; 
 
(iv)  has been expressly forbidden to be published by a court or tribunal; or if the 
disclosure of information may result in contempt of court; 
 
(v)  cause a breach of privilege of Parliament or Provincial Assembly; 
 
(vi)  relates to trade secrets, intellectual property (and such disclosure would harm a 
competitor), except if such information is permitted under the law relating to 
right of information; 
 
(vii)  is available to the person making the disclosure in his fiduciary capacity, except 
if such information is permitted under the law relating to right of information; 
 
(viii)  is received in confidence from a foreign government; 
 
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(ix)  impede the process of investigation or apprehension or prosecution of offenders: 
 
(x)  endanger the life or physical safety of a person, o r identify the source of 
information given in confidence for law enforcement or security purposes; and 
 
(xi)  contains disclosure of personal information and it has no relationship with any 
public interest or if it causes unwarranted invasion of privacy, except if it is 
permitted under the law relating to right of information. 
 
CHAPTER III 
 
COMPETENT AUTHORITY 
 
7. Powers of Competent Authority.⸺(1) For the purpose of inquiry (including the 
preliminary inquiry), the Competent Authority shall have all the powers of a Civil Court while trying 
a suit under the Code of Civil Procedure, 1908 (Act V of 1908) , in respect of the following matters, 
namely:⸺ 
 
(a) summoning and enforcing the attendance of any person and examining him on oath; 
 
(b) requiring the discovery and production of any document; 
 
(c) receiving evidence on affidavits; 
 
(d) requisitioning any public record or copy thereof from any court or office; 
 
(e) issuing commissions for the examination of witnesses or documents; and 
 
(f) such other matters as may be prescribed. 
 
(2) The Competent Authority shall be deemed to be a civil court for the purpose of section 195 
and Chapter XXVI of the Code of Criminal Procedure , 1898 (Act V of 1898), and every pr oceeding 
before the Competent Authority shall be deemed to be a judicial proceeding within the meaning of 
sections 193 and 228 and section 196 of the Pakistan Penal Code, 1860 (Act XLV of 1860). 
 
(3) No claim for any privilege etc., shall be accepted in a proceeding under this Act. 
 
(4) The Competent Authority, shall take all necessary steps to protect the disclosure of identity 
of the Complainant while proceeding under this Act. 
 
8. Organizations etc., to establish systems. All organization shall establish  proper and 
adequate systems for dealing with inquiry and processing of disclosures. 
 
9. All authorities to assist Competent Authority. For the purpose of making discreet inquiry 
or obtaining information from the organization concerned, the Competent Authority may take 
assistance of the Police authorities or any other authority or agency as may be considered necessary, 
to render necessary assistance to complete the inquiry within the prescribed time  pursuant to the 
disclosure received by the Competent Autho rity. A person who  makes disclosure shall also assist in 
the inquiry under this Act. 
 
 
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CHAPTER IV 
 
PROTECTION OF COMPLAINANT AND WITNESSES 
 
10. Protection against adverse actions etc. ⸺(1) The Government shall ensure that neither 
any adverse action shall be taken against a Complainant nor shall he be victimized by initiation of any 
proceedings or otherwise merely  on the ground that he made a disclosure or rendered assistance in 
inquiry under this Act. A person shall be considered victimized if,— 
 
(i)  dismissed; 
 
(ii)  suspended; 
 
(iii)  denied promotion: 
 
(iv)  demoted; 
 
(v)  made redundant; 
 
(vi)  harassed; 
 
(vii)  intimidated; 
 
(viii)  threatened with any of the matters set out in (i) to (vii); and 
 
(ix)  subjected to a discriminatory or other adverse measure by the employer or a 
fellow employee. 
 
(2) If any person is being victimized or likely to be victimized on  the basis of his filing a 
complaint or making a disclosure or rendering assistance in inquiry under this Act, he may make an 
application to the Competent Authority seeking redress in the matter, and such authority shall take 
such action, as deemed fit and may give s uitable directions to the concerned public servant or the 
Organization, as the case may be, to protect him from being victimized or avoid his victimization. 
 
(3) The Competent Authority shall, before giving any such direction to the Organization, give 
an opportunity of hearing to the complainant and the Organization, as the case may be: 
 
Provided that in any such hearing, the burden of proof that the alleged action on the part of the 
Organization is not victimisation, shall lie on the Organization. 
 
(4) The Organization shall be bound by every direction given under sub-section (3). 
 
(5) Notwithstanding anything contained in any other law for the time being in force, the power 
to give directions under sub-section (2), in relation to a public servant, shall include the power to direct 
the restoration of the public servant making the disclosure, to the status quo ante. 
 
(6) Any person who willfully does not comply with the direction of the Competent Authority 
under sub-section (2), shall be liable to a penalty which may extend up to five hundred thousand rupees. 
 
11. Protection of witnesses etc.⸺If the Competent Authority either on the application of the 
complainant, or witnesses, or on the basis of information gathered, is of the opinion that either the 
 
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complainant or public  servant or the witnesses or any person rendering assistance for inquiry under 
this Act need protection, the Competent Authority shall issue appropriate to the concerned Government 
authorities (including Police) which shall take necessary steps, through its agencies, to protect such 
complainant or public servant or persons concerned. 
 
12. Protection of identity of complainant.  The Competent Authority shall, notwithstanding 
any law for the time being in force, conceal, as required under this Act, the identity of the complainant 
and the documents or information furnished by him, for the purposes of inquiry under this Act, unless 
decided otherwise by the Competent Authority itself or it became necessary  to reveal or produce the 
same by virtue of the order of the court. 
 
13. Power to issue interim orders.⸺In case the Competent Authority is of the view that after 
disclosure, any corrupt practice is required to be stopped, during the pendency of any inquiry it may 
pass such interim orders as deem appropriate, to prevent the continuation of such practice. 
 
CHAPTER V 
 
OFFENCES AND PENALTIES 
 
14. Penalty for furnishing incomplete or incorrect or misleading comments or explanation 
or report.⸺(1) W(here the Competent Authority is of the opinion that the Organization or official 
concerned has not furnished the report within the specified time, without any reasonable cause, or 
malafidely refused to submit the report or knowingly submitted incomplete, incorrect or misleading or 
false report or destroyed record or information which was the subject of the disclosure or obstructed 
in any manner in furnishing the report, it may impose where the Organization or official concerned— 
 
(a)  without any reasonable cause, has not furnished the report within the specified 
time or malafidely refused to submit the report, a minimum penalty which may 
extend to ten thousand rupees for each day till report is furnished; 
 
(b)  has knowingly given incomplete, incorrect or misleading or false report or 
destroyed record or information which was the subject of the disclosure or 
obstructed in any manner the furnishing of the report, a  penalty which may 
extend to one hundred thousand rupees: 
 
Provided that no penalty shall be imposed against any person unless he has been given an 
opportunity of being heard. 
 
(2) Any person aggrieved by order of Competent Authority under sub-section (1) may within 
thirty days of order prefer an appeal to the next higher authority or an authority as may be prescribed 
for the purposes of this section. 
 
15. Punishment for revealing identity of complainant. ⸺Any person, who negligently or 
malafidely reveals the identity of a complainant shall, without prejudice to the other provisions of this 
Act, be punishable with imprisonment for a term which may extend to six months or with fine or with 
both. 
 
16. Punishment for false or frivolous  disclosure. Any person who makes any disclosure 
malafidely and knowingly that it was incorrect or false or misleading shall be punishable with 
 
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imprisonment for a term which may extend to one year and also to fine which may extend up to one 
hundred thousand rupees. 
 
17. Punishment for Head of  Organization.⸺(1) Where an offence under this Act has been 
committed by any Organization of Government, the Head of the Organization shall be liable unless he 
proves that the offence was committed without his knowledge or that he exercised all due diligence to 
prevent the commission of such offence. 
 
(2) Notwithstanding anything contained in sub-section (1), where an offence under this Act has 
been committed by an Organization of Government and it is proved that the offence has been 
committed with the consent or connivance of , or is attributable to any officer, su ch officer shall also 
be deemed to be guilty of that offence and shall be liable to be proceeded against and punished 
accordingly. 
 
18. Offences by companies.⸺(1) Where an offence under this Act has been committed by a 
company, every .person who at the time of commission of  the offence was in charge of, and was 
responsible to the company for the conduct of the business of the company as well as the company, 
shall be deemed to be guilty of the offence and shall be liable to be proceeded against and  punished 
accordingly: 
 
Provided that nothing contained in this sub -section shall render any such person liable to any 
punishment provided in this Act, if he proves that the offence was committed without his knowledge 
or that he has exercised all due diligence to prevent the commission of such offence. 
 
(2) Notwithstanding anything contained in sub-section (1), where an offence under this Act has 
been committed by a company and it is proved that the offence has been committed with the consent 
or connivance of, or is attributable to, any neglect on the part of any  director, manager, secretary or 
other officer of the company, such director, manager, secretary or other officer shall also be deemed 
to be guilty of the offence and shall be liable to be proceeded against and punished accordingly. 
 
Explanation.⸺For the purposes of this section,⸺ 
 
(a) “company” means anybody corporate and includes a firm or other association 
of individuals; and 
 
(b)  “director”, in relation to a firm, means a partner in the firm. 
 
19. Court to take cognizance.⸺(1)No court, shall take cognizance of any offence punishable 
under this Act or the rules or regulations made thereunder, except on a complaint made by the 
Competent Authority or any officer or person authorized by it in writing. 
 
(2) No court inferior to that of a Court of Sessions shall try any offence punishable under this 
Act and the provisions of the Code of Criminal  Procedure, 1898 (Act V of 1898) shall, mutatis 
mutandis, apply to the trial of such offences. 
 
(3) No Court shall have jurisdiction in respect of any matter which the Competent Authority is 
empowered by or unde r this Act determine and no injunction shall be granted by any court or other 
authority in respect of any action taken or to be taken in pursuance of any power conferred by or under 
this Act. 
 
 
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CHAPTER VI 
 
MISCELLANEOUS 
 
20. Protection of action taken in good faith.⸺No suit, prosecution or other legal proceedings 
shall lie against the Competent Authority or against any officer, employees, agency or person acting 
on its behalf or any other person, in respect of anything which is in good faith done or intended to be 
done under this Act. 
 
21. Report on disclosures.⸺(1) The Competent Authority shall prepare a consolidated annual 
report of the performance of its activities in such form as may  be prescribed and forward it to the 
Government: 
 
Provided that Identity of the complainant if not necessary shall not be disclosed in the Report. 
 
(2) On receipt of the annual report under sub-section (1), the Government shall cause a copy 
there of to be laid before each House of Parliament. 
 
22. Power of Government to make rules.⸺(1)The Government may, by notification in the 
official Gazette, make rules for carrying out the purposes of this Act. 
 
(2) In particular, and without prejudice to the generality of the foregoing power, such rules may 
provide for all or any of the following matters, namely:⸺ 
 
(a)  the procedure for disclosure under section 3; 
 
 
(b)  the manner and the time within which the inquiry shall be conducted by the 
Competent Authority; 
 
(c)  the additional matter in respect of which the Competent Authority may exercise 
the powers of a Civil Court under section 6; 
 
(d)  the form of annual report under sub-section (1) of section 21; 
 
(e)  promoting awareness mechanism for protection of persons making public 
interest disclosures and the financial incentives which may be offered to such 
persons; and 
 
(f) any other matter which is required to be, or may be, prescribed. 
 
23. Power of Competent Authority to make regulations.  The Competent Authority may, 
with the previous approval of the Government, by notification in the Official Gazette, make regulations 
not inconsistent with the provisions of the Act and the rules made thereunder to provide for all matters 
for which provision is expedient for the purposes of giving effect to the provisions of this Act. 
 
24. Rules to be laid before Parliament.  The rules made by the Government under this Act 
shall be laid, as soon as may be after they are issued, before each House of Parliament. 
 
25. Overriding effect. The provisions of this Act shall have effect notw ithstanding anything 
contained in any other law for the time being in force. 
 
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26. Removal of difficulty.⸺(1) If any difficulty arises in giving effect to any of the provisions 
of the Act, the Government may, by order, not inconsistent with the provisions of this Act, remove the 
difficulty: 
 
Provided that no such order shall be made after the expiry of a period of  three years from the 
date of the commencement of this Act. 
 
(2) Every order made under this section shall, as soon as may be after it is made be laid before 
each House of Parliament.