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A New Whistleblower Directive: Toward Stronger Protection in the EU

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Whistleblower Protection by the Council of Europe, the European Court of Human Rights and the European Union

Part of the book series: European Union and its Neighbours in a Globalized World ((EUNGW,volume 3))

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Abstract

This chapter describes the adoption process of the EU Whistleblower Directive, from the stakeholder consultations to the Trilogue negotiation between the European Commission, the European Parliament and the Council. It also explores the key aspects of the adopted EU Whistleblower Directive and examines the significance of this new piece of legislation for the future of whistleblower protection in Europe. The last part of the chapter illustrates the opportunities and challenges in the transposition phase and how it will integrate in the EU legal landscape.

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Notes

  1. 1.

    EU Commission, Commission Staff Working Document: Impact Assessment Accompanying the document Proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law [hereinafter “Impact Assessment accompanying the EU Whistleblower Directive proposal”], SWD(2018) 116 final, 23 Avril 2018, pp. 28–29.

  2. 2.

    Ibid., p. 2.

  3. 3.

    EU Commission, Annexes on the Proposal for a Directive on the protection of persons reporting on breaches of Union law COM(2018) 218 final – 2018/0106(COD) [hereinafter “Annexes on the EU Whistleblower Directive proposal”], 23 April 2018, Annex 6, p. 126.

  4. 4.

    Ibid.

  5. 5.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 12; see also Worth et al. (2018).

  6. 6.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 12.

  7. 7.

    Ibid., pp. 12-13; see also Vandendriessche (2018), pp. 486–488.

  8. 8.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 6, p. 129.

  9. 9.

    As early as 2002, MEPs asked the EU Commission about possible whistleblower protection rules, see e.g. Parliamentary question by the MEP Eija-Riitta Korhola (PPE-DE) to the Commission: EU Standards governing whistle-blowers in the private sector, E-0345/02, 12 February 2002.

  10. 10.

    Recital 14 European Parliament resolution of 23 October 2013 on organised crime, corruption and money laundering: recommendations on action and initiatives to be taken (final report) (2013/2107(INI)), P7_TA(2013)0444; Recital 88 European Parliament resolution of 12 March 2014 on the US NSA surveillance programme, surveillance bodies in various Member States and their impact on EU citizens’ fundamental rights and on transatlantic cooperation in Justice and Home Affairs; Recital 2 European Parliament resolution of 14 February 2017 on the role of whistleblowers in the protection of EU’s financial interests (2016/2055(INI)), P8_TA(2017)0022.

  11. 11.

    Recital 1 European Parliament Resolution 2016/2224(INI), (emphasis added).

  12. 12.

    EU Commission, Proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law [hereinafter “Whistleblower Directive proposal”], COM(2018) 218 final – 2018/0106(COD), 23 April 2018.

  13. 13.

    Directive (EU) 2019/1937 of the European Parliament and of the Council of 23 October 2019 on the protection of persons who report breaches of Union law [hereinafter “EU Whistleblower Directive”], OJ L 305, 26.11.2019, p. 17.

  14. 14.

    Article 26(1) EU Whistleblower Directive.

  15. 15.

    Rowe (2006), pp. 460–461.

  16. 16.

    Ibid., p. 454.

  17. 17.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 1, pp. 59 et seq.

  18. 18.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 2 p. 65: 97% of respondents took part as private individuals.

  19. 19.

    Ibid.: 43% of respondents came from Germany.

  20. 20.

    Köhn (2019, 15 Mai) and Strack (2008).

  21. 21.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 2 p. 65: 23% of respondents came from France.

  22. 22.

    Loi No. 2016-1691 du 9 décembre 2016 relative à la transparence, à la lutte contre la corruption et à la modernisation de la vie économique (1) (Loi Sapin II).

  23. 23.

    Péronne and Daoud (2017), Mignon-Colombet and Hannedouche-Leric (2017) and Hertslet and Barsan (2018).

  24. 24.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 2, p. 66: 99.4% of OPC respondents agreed that whistleblowers should be protected.

  25. 25.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 13, p. 23: 96% of individuals and 84% of organizations supported legally binding minimum standards.

  26. 26.

    Ibid., p. 25: 95% of individuals, 85% of organizations.

  27. 27.

    Ibid.: 93% of individuals, 78% of organizations.

  28. 28.

    Ibid.: 93% of individuals, 73% of organizations.

  29. 29.

    Ibid.: 92% of individuals, 73% of organizations.

  30. 30.

    Ibid.: 91% of individuals, 71% of organizations.

  31. 31.

    Ibid., p. 26.

  32. 32.

    Ibid., p. 27: 39% of individuals were for EU horizontal legal provisions compared to 28% for a combination of EU and national legal provisions. (On the other hand, 33% of organizations supported horizontal legal provisions in contrast to 43% for a combination of EU and national provisions, see EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 13, p. 28).

  33. 33.

    Ibid., p. 15: 84% of individuals, 80% of organizations.

  34. 34.

    Ibid.: 84% of individuals, 78% of organizations.

  35. 35.

    Ibid.: 83% of individuals, 82% of organizations.

  36. 36.

    Ibid., pp. 12-13: 88% of individuals, 87% of organizations.

  37. 37.

    Ibid., p. 15; 85% of individuals, 82% of organizations.

  38. 38.

    Ibid., p. 13; 85% of individuals, 79% of organizations.

  39. 39.

    Ibid.: 76% of individuals, 77% of organizations.

  40. 40.

    Ibid.; 79% of individuals, 68% of organizations.

  41. 41.

    Ibid.; 83% of individuals while only 65% of organizations supported this option.

  42. 42.

    Ibid.: 68% of organizations versus 55% of individuals.

  43. 43.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 2, p. 65; 26 respondents were public authorities.

  44. 44.

    Ibid., p. 67, tax evasion represented 50% of all cases, tax avoidance 1%, and corruption 44%.

  45. 45.

    Ibid., p. 69.

  46. 46.

    Ibid., p. 68.

  47. 47.

    Ibid., p. 67.

  48. 48.

    Ibid., p. 70.

  49. 49.

    Ibid., p. 66.

  50. 50.

    Ibid., pp. 70–71.

  51. 51.

    Ibid., p. 71.

  52. 52.

    Ibid., p. 71.

  53. 53.

    Ibid., p. 68.

  54. 54.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annexes 14 and 15 (ICF’s Study on the need for horizontal or further sectorial action at EU level to strengthen the protection of whistleblowers: Final Report, Vol. I – Principal Report (Annex 14); Vol. II - Annexes 1 to 9 (Annex 15).

  55. 55.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 32–37.

  56. 56.

    Article 5(1) TEU.

  57. 57.

    CJ, Case C-300/89, Commission of the European Communities v. Council of the European Communities (Titanium Dioxide), Judgment of 11 June 1991, ECLI:EU:C:1991:244, para 10; CJ, Case C-45/86, Commission of the European Communities v. Council of the European Communities (Generalized Tariff Preferences), Judgment of 26 March 1987, ECLI:EU:C:1987:163, para 5; CJ, Case C-440/05, Commission of the European Communities v. Council of the European Communities, Judgment of 23 October 2007, ECLI:EU:C:2007:625; CJ, Case C-411/06, Commission of the European Communities v. European Parliament and Council of the European Union, Judgment of 8 September 2009, ECLI:EU:C:2009:518.

  58. 58.

    CJ, Case C-411/06, Commission v. Parliament and Council, para 47; CJ, C-178/03, Commission of the European Communities v. European Parliament and Council of the European Union, Judgment of 10 January 2006, ECLI:EU:C:2006:4, para 43; CJ, Case C-336/00, Republik Österreich v. Martin Huber, Judgment of 19 September 2002, ECLI:EU:C:2002:509, para 31; CJ, Case C-281/01, Commission of the European Communities v. Council of the European Union, Judgment of 12 December 2002, ECLI:EU:C:2002:761, para 35.

  59. 59.

    CJ, Case C-300/89, Titanium Dioxide, paras 17 et seq.

  60. 60.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 1.

  61. 61.

    Cobbaut (2019), p. 298.

  62. 62.

    Schmitt (2019), pp. 505–506.

  63. 63.

    Article 6(1) TEU; see also CJ, Case C-339/10, Krasimir Asparuhov Estov and Others v. Ministerski savet na Republika Bulgaria, Order of 12 November 2010, ECLI:EU:C:2010:680, para 12.

  64. 64.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 30–31.

  65. 65.

    Ibid., p. 37.

  66. 66.

    Ibid., p. 53.

  67. 67.

    Ibid., p. 38

  68. 68.

    Abazi (2017).

  69. 69.

    Ibid., p. 10.

  70. 70.

    Ibid., pp. 11–12.

  71. 71.

    Ibid., p. 15.

  72. 72.

    Abazi et al. (2016).

  73. 73.

    Abazi et al. (2018).

  74. 74.

    Ibid., p. 7.

  75. 75.

    Ibid., p. 6.

  76. 76.

    Abazi et al. (2016), pp. 17–19.

  77. 77.

    Ibid., pp. 19–20.

  78. 78.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 1, p. 59.

  79. 79.

    Council reply to an official request by the author to access that document, 11 November 2019, Ref. 19/2133-rh/nb, p. 2.

  80. 80.

    Legal Service of the Council, Opinion on the Commission proposal for a Directive of the European Parliament and the Council on the protection of persons reporting on breaches of Union law (“whistleblowers” directive) – legal basis, No. 14620/18, 14 December 2018.

  81. 81.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 1.

  82. 82.

    Racho (2016), para 8.

  83. 83.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 52.

  84. 84.

    Racho (2016), para 11.

  85. 85.

    Ibid., para 15 in fine.

  86. 86.

    Ibid., para 16.

  87. 87.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 29.

  88. 88.

    EU Commission, EU Law: Better Results through Better Application, Communication from the Commission, 2017/C 18/02, 23 December 2016.

  89. 89.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 29.

  90. 90.

    Ibid.

  91. 91.

    Ibid.

  92. 92.

    Ibid., p. 30.

  93. 93.

    Ibid., p. 32 (emphasis added).

  94. 94.

    Ibid., p. 29.

  95. 95.

    Ibid., p. 32.

  96. 96.

    Ibid., pp. 15–18.

  97. 97.

    Ibid., p. 28.

  98. 98.

    Ibid., p. 6

  99. 99.

    Ibid., p. 33.

  100. 100.

    Ibid., p. 32.

  101. 101.

    Ibid., pp. 42–43.

  102. 102.

    Ibid., p. 43.

  103. 103.

    Ibid., p. 44; see also EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 3, p. 72, too few EU Member States public agencies collect data on whistleblowers to constitute a representative costs-benefits analysis.

  104. 104.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 3, p. 73.

  105. 105.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, p. 44.

  106. 106.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 3, p. 74; (estimated to cost 1 h of staff time per report of wrongdoing; the number of reports of wrongdoing per worker is assumed to increase as the strength of protection increases).

  107. 107.

    Ibid.; (estimated to cost €1.5 per person per year, based on consultations with hotline providers and other experts).

  108. 108.

    Ibid.; (estimated to take an average of 2 days of staff time per report for both internal and outsourced internal reporting channels).

  109. 109.

    Ibid.; (estimated at half an hour of training per worker per year). The proportion of workers who receive training to ensure they are aware of the violations of law and reporting channels is assumed to vary by the strength of protection available in a Member State.).

  110. 110.

    Ibid., p. 76.

  111. 111.

    Ibid., p. 74; Large companies count between 250 and 44,000 employees and represent 1% of all business in the EU.

  112. 112.

    Ibid., p. 75; In the EU, medium companies have between 50 and 249 employees.

  113. 113.

    Ibid.; Companies with fewer than 50 employees.

  114. 114.

    Ibid.

  115. 115.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 38–39.

  116. 116.

    Ibid., p. 39.

  117. 117.

    Ibid.

  118. 118.

    Ibid.

  119. 119.

    Ibid., pp. 48–49.

  120. 120.

    Ibid., p. 40.

  121. 121.

    Ibid., p. 51; The costs on the national justice system is estimated to be around 34 million, with the strongest impact on the justice system of Spain, Latvia and Cyprus, and the least impact on France and the UK.

  122. 122.

    Ibid.; EUR 916.5 million for the private sector and EUR 284.4 million for the public sector.

  123. 123.

    Ibid., p. 50.

  124. 124.

    Ibid.

  125. 125.

    EU Commission, EU Whistleblower Directive proposal, Explanatory Memorandum, p. 6.

  126. 126.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 40–41.

  127. 127.

    Ibid., pp. 15–28.

  128. 128.

    Ibid., p. 40.

  129. 129.

    Ibid., p. 41.

  130. 130.

    Ibid., p. 57.

  131. 131.

    Ibid., p. 52.

  132. 132.

    Ibid., p. 53.

  133. 133.

    Ibid., p. 54; EUR 34 million, with Spain, Latvia and Cyprus bearing the highest costs.

  134. 134.

    Ibid., p. 55; approx. EUR 1,000 million for the private sector, and around EUR 320 million for the public sector.

  135. 135.

    Ibid.

  136. 136.

    Ibid., pp. 55–56.

  137. 137.

    Ibid., p. 58.

  138. 138.

    Ibid., p. 58.

  139. 139.

    EU Commission, Strengthening whistleblower protection at EU level, Communication from the Commission to the European Parliament, the Council and the European Economic and Social Committee, COM(2018)214 final, p. 12.

  140. 140.

    Article 1(2) Whistleblower Directive proposal.

  141. 141.

    Annex to the Proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law, COM(2018) 218 final ANNEX 1, 23 April 2018, Part II, A (iv), p. 8.

  142. 142.

    Annex to the Whistleblower Directive proposal, Part II, C (i), p. 9.

  143. 143.

    Annex to the Whistleblower Directive proposal, Part II, B (i), p. 9.

  144. 144.

    Annex to the Whistleblower Directive proposal, Part II, A(v), p. 8.

  145. 145.

    Article 12 (1)(a) Directive 2009/65/EC of the European Parliament and of the Council of 13 July 2009 on the coordination of laws, regulations and administrative provisions relating to undertakings for collective investment in transferable securities (UCITS), OJ L 302, 17.11.2009, p. 32.

  146. 146.

    Article 19(3)(h) Directive 2009/65/EC.

  147. 147.

    Article 1(1) Whistleblower Directive proposal.

  148. 148.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 15–28.

  149. 149.

    Article 1(1)(a) Whistleblower Directive proposal.

  150. 150.

    Article 1(1)(d) Whistleblower Directive proposal.

  151. 151.

    Article 1(1)(d) Whistleblower Directive proposal.

  152. 152.

    Article 1(1)(b) Whistleblower Directive proposal.

  153. 153.

    Article 1(1)(b) Whistleblower Directive proposal.

  154. 154.

    Article 1(1)(c) Whistleblower Directive proposal.

  155. 155.

    Article 2 (1) Whistleblower Directive proposal.

  156. 156.

    Article 3 (10) Whistleblower Directive proposal.

  157. 157.

    Article 2(1)(a) Whistleblower Directive proposal.

  158. 158.

    Article 2(1)(b) Whistleblower Directive proposal.

  159. 159.

    Article 2(1)(c) Whistleblower Directive proposal.

  160. 160.

    Article 2(1)(d) Whistleblower Directive proposal.

  161. 161.

    Article 2(2) Whistleblower Directive proposal.

  162. 162.

    Article 4 Whistleblower Directive proposal.

  163. 163.

    Article 6 Whistleblower Directive proposal.

  164. 164.

    Article 14 Whistleblower Directive proposal.

  165. 165.

    Article 13(1) Whistleblower Directive proposal.

  166. 166.

    Article 13(2)(b) Whistleblower Directive proposal.

  167. 167.

    Article 13(2)(a), (d) and (e) Whistleblower Directive proposal.

  168. 168.

    Article 13(2)(c) Whistleblower Directive proposal.

  169. 169.

    Article 13(2)(f) Whistleblower Directive proposal.

  170. 170.

    Article 13(4)(a) Whistleblower Directive proposal.

  171. 171.

    Article 13(4)(b) Whistleblower Directive proposal.

  172. 172.

    Article 4(3)(a) and (b) Whistleblower Directive proposal.

  173. 173.

    Article 4(3)(c) Whistleblower Directive proposal.

  174. 174.

    Article 4(6)(c) Whistleblower Directive proposal.

  175. 175.

    Article 4(2) Whistleblower Directive proposal.

  176. 176.

    Article 5(2)(a) Whistleblower Directive proposal.

  177. 177.

    Article 5(2)(b) Whistleblower Directive proposal.

  178. 178.

    Article 5(1)(a) Whistleblower Directive proposal.

  179. 179.

    Article 5(1)(c) Whistleblower Directive proposal.

  180. 180.

    Article 3(13) Whistleblower Directive proposal.

  181. 181.

    Article 4(1) Whistleblower Directive proposal.

  182. 182.

    Article 5(1)(d) Whistleblower Directive proposal.

  183. 183.

    Article 5(3) Whistleblower Directive proposal.

  184. 184.

    Article 6(2)(a) Whistleblower Directive proposal.

  185. 185.

    Article 8(1) Whistleblower Directive proposal.

  186. 186.

    Article 8(2)(b) Whistleblower Directive proposal.

  187. 187.

    Article 8(2)(a) and (c) Whistleblower Directive proposal.

  188. 188.

    Article 6(2)(b) Whistleblower Directive proposal.

  189. 189.

    Article 6(3) Whistleblower Directive proposal.

  190. 190.

    Article 6(2)(c) Whistleblower Directive proposal.

  191. 191.

    Article 6(2)(a) Whistleblower Directive proposal.

  192. 192.

    Article 9(1)(c) in conjunction with Article 9(2) and (3) Whistleblower Directive proposal.

  193. 193.

    Article 7(1) Whistleblower Directive proposal.

  194. 194.

    Article 7(2)(a) Whistleblower Directive proposal.

  195. 195.

    Article 7(2)(b) Whistleblower Directive proposal.

  196. 196.

    Article 7(2)(c) Whistleblower Directive proposal.

  197. 197.

    Article 10 Whistleblower Directive proposal.

  198. 198.

    Article 10(a) Whistleblower Directive proposal.

  199. 199.

    Article 10(b) Whistleblower Directive proposal.

  200. 200.

    Article 10(c) and (e) Whistleblower Directive proposal.

  201. 201.

    Article 10(f) Whistleblower Directive proposal.

  202. 202.

    Article 12 Whistleblower Directive proposal.

  203. 203.

    Article 11(2) Whistleblower Directive proposal.

  204. 204.

    Article 11(3) and (4) Whistleblower Directive proposal.

  205. 205.

    Article 11(5) Whistleblower Directive proposal.

  206. 206.

    Article 19 Whistleblower Directive proposal.

  207. 207.

    Article 14 Whistleblower Directive proposal.

  208. 208.

    Article 15(7) Whistleblower Directive proposal.

  209. 209.

    Article 15(5) Whistleblower Directive proposal.

  210. 210.

    Article 15(8) Whistleblower Directive proposal.

  211. 211.

    Article 17 Whistleblower Directive proposal.

  212. 212.

    ECA, Opinion concerning the proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law, No. 4/2018, 15 October 2018, para 12.

  213. 213.

    Gerdemann (2019), p. 28.

  214. 214.

    EP, Report on the proposal for a directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law (COM(2018) – C8-0159/2018 – 2018/0106(COD)) [hereinafter “EP Report on the Whistleblower directive proposal”], A8-0389/2018, 26 November 2018.

  215. 215.

    Ibid.: Opinion of the Committee on Legal Affairs (JURI), p. 134; Opinion of the Committee on Economic and Monetary Affairs (ECON), p. 149; Opinion of the Committee on the Environment, Public health and Food safety (ENVI), p. 350; Opinion of the Committee on Culture and Education (CULT), p. 434; Committee on Constitutional Affairs (AFCO), p. 489.

  216. 216.

    Ibid.: Opinion of JURI, p. 134 and pp. 137-147; Opinion of ECON, p. 149; Opinion of ENVI, p. 351; Opinion of AFCO, p. 489.

  217. 217.

    Ibid.: Opinion JURI, p. 147; Committee on Civil Liberties, Justice and Home Affairs (LIBE), proposed Amendment 1, p. 188; Committee on Employment and Social Affairs (EMPL), proposed Amendment 1, p. 312.

  218. 218.

    Ibid.: ENVI, proposed Amendments 62 to 103, pp. 390–430.

  219. 219.

    Ibid.: CULT, proposed Amendments 70 to 88, pp. 480–486.

  220. 220.

    Ibid.: Committee on Budgetary Control (CONT), proposed Amendment 55, p. 284; CULT, proposed Amendment 44, p. 458; AFCO, proposed Amendment 35, p. 508; see also EMPL, proposed Amendment 4, p. 313, ENVI, proposed Amendment 2, p.352.

  221. 221.

    Ibid.: ECON, proposed Amendment 32, p. 166; LIBE, proposed Amendments 65 and 70, pp. 222–223; CONT, proposed Amendment 58, p. 285; EMPL, proposed Amendment 33, p. 328; CULT, proposed Amendment 45, p. 459; AFCO, proposed Amendment 39, p. 509.

  222. 222.

    Ibid.: CONT, proposed Amendment 59, p. 285; LIBE, proposed Amendment 66, 71 and 74, pp. 222, 223 and 224; EMPL, proposed Amendment 37, p. 329; ENVI, proposed Amendment 27, p. 369; CULT, proposed Amendment 45, p. 460; AFCO, proposed Amendment 40, p. 510.

  223. 223.

    Ibid.: LIBE, proposed Amendments 88 and 90, p. 229; CONT, proposed Amendment 71, p. 289; EMPL, proposed Amendment 47, p. 333; ENVI, proposed Amendment 34, p. 373; CULT, proposed Amendment 47, p. 464.

  224. 224.

    Ibid.: ECON, proposed Amendments 31 and 34, pp. 165 and 166; LIBE, proposed Amendments 68 and 72, pp. 222 and 224; CONT, proposed Amendment 61, p. 286; EMPL, proposed Amendment 40, p. 330; ENVI, proposed Amendment 29, pp. 369–370; CULT, proposed Amendment 45, p. 460; AFCO, proposed Amendment 44, p. 511.

  225. 225.

    Ibid.: ECON, proposed Amendment 55, 69 and 77, pp. 173, 177 and 182; LIBE, proposed Amendment 94, p. 230; CONT, proposed Amendment 108, p. 302; EMPL, proposed Amendment 46, p. 332; ENVI, proposed Amendment 52, p. 384; CULT, proposed Amendment 48, p. 464; AFCO, proposed Amendment 57, pp. 515–516.

  226. 226.

    Ibid.: ECON, proposed Amendment 68, p. 177; LIBE, proposed Amendment 127, p. 241; CONT, proposed Amendments 105 and 106, pp. 300–301; EMPL, proposed Amendment 70, p. 340; ENVI Opinion, p. 351, proposed Amendment 50, p. 382; CULT Opinion p. 435 and proposed Amendment 61, pp. 473-475; AFCO, proposed amendment 55, p. 515.

  227. 227.

    Ibid.: ECON, proposed Amendment 74, p. 180; EMPL, proposed Amendment 90, p. 345: AFCO, proposed Amendment 62, p. 517.

  228. 228.

    Ibid.: CONT, proposed Amendment 70, p. 289.

  229. 229.

    Ibid.: CONT, proposed Amendment 87, p. 294.

  230. 230.

    Ibid.: ENVI Opinion p. 351.

  231. 231.

    Ibid.: Draft European Parliament Legislative Resolution on the proposal for a directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law (COM(2018)0218 – C8-0159/2018 – 2018/0106(COD)) [hereinafter “EP Draft Legislative Resolution”], proposed Amendment 1, p. 6.

  232. 232.

    Ibid.: Draft Legislative Resolution, proposed Amendment 87, p. 58.

  233. 233.

    Ibid.: Draft Legislative Resolution, proposed Amendments 119-154, pp. 90–133.

  234. 234.

    Ibid.: Draft Legislative Resolution, proposed Amendment 88, pp. 59–60.

  235. 235.

    Ibid.: Draft Legislative Resolution, proposed Amendment 88, p. 59. The inclusion of facilitators to the EU initiative was called for, inter alia, by the German Bar Association (2018), pp. 9–10.

  236. 236.

    Ibid.: Draft Legislative Resolution, proposed Amendment 89, p. 61.

  237. 237.

    Ibid.: Draft Legislative Resolution, proposed Amendment 88, p. 60.

  238. 238.

    Article 13(1) Whistleblower Directive proposal.

  239. 239.

    EP Report on the Whistleblower directive proposal: Draft Legislative Resolution, proposed Amendment 88, p. 59.

  240. 240.

    Ibid.: Draft Legislative Resolution, proposed Amendment 89, p. 62.

  241. 241.

    Ibid.: Draft Legislative Resolution, proposed Amendment 98, p. 75.

  242. 242.

    Ibid.: Draft Legislative Resolution, proposed Amendment 91, p. 65 (internal reporting); proposed Amendment 95, pp. 70–71 (external reporting).

  243. 243.

    Ibid.: Draft Legislative Resolution, proposed Amendment 100, pp. 78–79.

  244. 244.

    Ibid.: Draft Legislative Resolution, proposed Amendment 103, pp. 82–83.

  245. 245.

    Eurocadres is the Council for European Professional and Managerial Staff, the trade union for professionals and managers.

  246. 246.

    Jefflen (2018, 21 November).

  247. 247.

    Council, Better protection of whistleblowers: Council adopts its position, 25 January 2019 Press release.

  248. 248.

    Position of the European Parliament adopted at first reading with a view to the adoption of Directive EU (2019)… of the European Parliament and of the Council on the protection of persons who report breaches of Union law, EP-PE_TCI-COD(2018)0106, 16 April 2019.

  249. 249.

    Council, Better protection of whistle-blowers: new EU-wide rules to kick in in 2021, 7 October 2019, Press release.

  250. 250.

    Directive (EU) 2019/1937 of 23 October 2019 on the protection of persons who report breaches of Union law [hereinafter “EU Whistleblower directive”], OJ L 305/17, 26.11.2019, p. 17.

  251. 251.

    Council, Voting result on the Directive of the European Parliament and of the Council on the protection of persons who report breaches of Union law, No. 13019/19, 11 October 2019; when asked by the author on the reasons for abstaining, the Permanent Representation of the Federal Republic of Germany to the EU replied “dass Deutschland sich zu der... Enthaltung im Rat inhaltlich nicht positioniert hat”, 25 February2021. The question to the United Kingdom remained unanswered.

  252. 252.

    CJ, Case 45/86, Commission v. Council, para 11.

  253. 253.

    CJ, Case C-300/89, Titanium Dioxide, para 10; see also CJ, Case C-376/98, Germany v. European Parliament and Council of the European Union (Tobacco Advertising), Judgment of 5 October 2000, ECLI:EU:C:2000:544, para 59.

  254. 254.

    Legal Service of the Council, Opinion on the Commission proposal for a Directive (“whistleblowers” directive) – legal basis, No. 14620/18, para 25.

  255. 255.

    CJ, Case C-411/06, Commission v. Parliament and Council, para 47; see also CJ, C-178/03, Commission of the European Communities v. European Parliament and Council of the European Union, Judgment of 10 January 2006, ECLI:EU:C:2006:4, para 43; CJ, Case C-336/00, Republik Österreich v. Martin Huber, Judgment of 19 September 2002, ECLI:EU:C:2002:509, para 31; CJ, Case C-281/01, Commission of the European Communities v. Council of the European Union, Judgment of 12 December 2002, ECLI:EU:C:2002:761, para 35.

  256. 256.

    CJ, Case C-300/89, Titanium Dioxide, paras 17 et seq.

  257. 257.

    Legal Service of the Council, Opinion on the Commission proposal for a Directive (“whistleblowers” directive) – legal basis, No. 14620/18, paras 41 and 43.

  258. 258.

    CJ, Case C-300/89, Titanium Dioxide, para 20.

  259. 259.

    Recital 108 EU Whistleblower Directive.

  260. 260.

    Article 1 EU Whistleblower Directive.

  261. 261.

    Article 2(1) EU Whistleblower Directive.

  262. 262.

    Article 5(1) in conjunction with Recitals 42 and 43 EU Whistleblower Directive.

  263. 263.

    Article 3(1) EU Whistleblower Directive; see also Recitals 9 and 20 of the same Directive.

  264. 264.

    Recital 68 EU Whistleblower Directive.

  265. 265.

    Article 3(1) EU Whistleblower Directive.

  266. 266.

    Annex to EU Whistleblower Directive.

  267. 267.

    Article 2(2) EU Whistleblower Directive.

  268. 268.

    Article 19 EU Whistleblower directive proposal.

  269. 269.

    Article 4(1) EU Whistleblower Directive.

  270. 270.

    Recital 36 EU Whistleblower Directive.

  271. 271.

    Article 4(2) EU Whistleblower Directive.

  272. 272.

    Article 4(4)(a) in conjunction with Recital 41 EU Whistleblower Directive.

  273. 273.

    Article 4(4)(b) EU Whistleblower Directive.

  274. 274.

    Recital 37 EU Whistleblower Directive.

  275. 275.

    See Sect. 8.3.1.1.

  276. 276.

    Recital 46 EU Whistleblower Directive.

  277. 277.

    Council, Statement by Hungary, Draft Directive of the European Parliament and of the Council on the protection of persons who report breaches of Union law (first reading) – Adoption of the legislative act = Statements, 12460/19 ADD 1 REV 1, 1 October 2019, p. 2.

  278. 278.

    Article 3(2) EU Whistleblower Directive.

  279. 279.

    Article 3(3)(a) EU Whistleblower Directive.

  280. 280.

    Article 4(2) in fine TEU; see also Recital 24 EU Whistleblower Directive.

  281. 281.

    Recital 31 EU Whistleblower Directive.

  282. 282.

    Article 6(1)(a) EU Whistleblower Directive.

  283. 283.

    Recital 32 EU Whistleblower Directive.

  284. 284.

    Ibid.

  285. 285.

    Article 5(2) EU Whistleblower Directive.

  286. 286.

    Recital 43 EU Whistleblower Directive.

  287. 287.

    Article 8(3) EU Whistleblower Directive.

  288. 288.

    Article 8(4) in conjunction with Article 3(1) EU Whistleblower Directive and Parts I.B and II of the Annex to the EU Whistleblower Directive.

  289. 289.

    Article 8(8) EU Whistleblower Directive.

  290. 290.

    Article 8(7) EU Whistleblower Directive.

  291. 291.

    Article 8(1) EU Whistleblower Directive.

  292. 292.

    Article 8(5) EU Whistleblower Directive. See also Recital 54 EU Whistleblower Directive.

  293. 293.

    Article 8(6) EU Whistleblower Directive.

  294. 294.

    Article 8(9) EU Whistleblower Directive.

  295. 295.

    Article 8(9) EU Whistleblower Directive.

  296. 296.

    Recital 72 EU Whistleblower Directive.

  297. 297.

    Reppelmund (2019), p. 307.

  298. 298.

    Council, Outcome of proceedings on the Proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law: Mandate for negotiations with the European Parliament – Declarations from Member States, Belgian Statement: Déclaration de la Belgique concernant la proposition de directive relative à la protection des personnes dénoncant les infractions au droit de l’Union and Bulgarian Statement: Declaration by the Republic of Bulgaria, Interinstitutional File: 2018/0106(COD), No. 5747/19 ADD 1, 29 January 2019, pp. 3-5.

  299. 299.

    Jefflen (2019, 16 December 2019).

  300. 300.

    Article 7(2) EU Whistleblower Directive.

  301. 301.

    Recital 47 EU Whistleblower Directive.

  302. 302.

    Recital 33 EU Whistleblower Directive.

  303. 303.

    Article 10 EU Whistleblower Directive.

  304. 304.

    Article 6(3) EU Whistleblower Directive.

  305. 305.

    Article 6(4) EU Whistleblower Directive.

  306. 306.

    Recitals 69 EU Whistleblower Directive.

  307. 307.

    Article 15(2) EU Whistleblower Directive.

  308. 308.

    Article 15(1)(a) EU Whistleblower Directive.

  309. 309.

    Article 15(1)(b)(i) in conjunction with Recital 80 EU Whistleblower Directive.

  310. 310.

    Article 15(1)(b)(ii) in conjunction with Recital 81 EU Whistleblower Directive.

  311. 311.

    Recital 79 EU Whistleblower Directive.

  312. 312.

    Article 5(6) EU Whistleblower Directive.

  313. 313.

    Recital 45 EU Whistleblower Directive.

  314. 314.

    Article 6(2) EU Whistleblower Directive.

  315. 315.

    Article 6(3) in conjunction with Articles 6(1) and Article 15 EU Whistleblower Directive.

  316. 316.

    Recital 53 EU Whistleblower Directive.

  317. 317.

    Article 9(2) (internal reporting) and Article 12(2) (external reporting) EU Whistleblower Directive.

  318. 318.

    Recital 75 EU Whistleblower Directive.

  319. 319.

    Recital 89 EU Whistleblower Directive.

  320. 320.

    Article 7(3) EU Whistleblower Directive.

  321. 321.

    Article 9(1)(g) in conjunction with Article 13 EU Whistleblower Directive.

  322. 322.

    Recital 90 EU Whistleblower Directive.

  323. 323.

    Recital 73 EU Whistleblower Directive.

  324. 324.

    Article 9(1)(a) (internal channel) and Article 12(1)(a) (external channel) EU Whistleblower Directive.

  325. 325.

    Recital 82 EU Whistleblower Directive.

  326. 326.

    Article 16(1) EU Whistleblower Directive.

  327. 327.

    Article 16(2) and (3) EU Whistleblower Directive.

  328. 328.

    Article 11(6) in conjunction with Article 12(3) EU Whistleblower Directive.

  329. 329.

    Article 18(1) EU Whistleblower Directive. See also Recitals 85-86 EU Whistleblower Directive.

  330. 330.

    Article 11(2)(b) EU Whistleblower Directive.

  331. 331.

    Article 9(1)(b) EU Whistleblower Directive.

  332. 332.

    Article 11(4) EU Whistleblower Directive.

  333. 333.

    Article 11(3) EU Whistleblower Directive.

  334. 334.

    Article 9(1)(f) EU Whistleblower Directive.

  335. 335.

    Article 11(2)(d) EU Whistleblower Directive.

  336. 336.

    Article 5(13) EU Whistleblower Directive.

  337. 337.

    Article 5(12) EU Whistleblower Directive.

  338. 338.

    Recital 63 EU Whistleblower Directive.

  339. 339.

    Article 12(5) EU Whistleblower Directive.

  340. 340.

    Article 23 EU Whistleblower Directive.

  341. 341.

    Recital 44 EU Whistleblower Directive.

  342. 342.

    Article 19 in conjunction with Article 5(11) EU Whistleblower Directive.

  343. 343.

    Recital 93 EU Whistleblower Directive.

  344. 344.

    Article 21(5) EU Whistleblower Directive.

  345. 345.

    Recital 93 EU Whistleblower Directive.

  346. 346.

    Recital 88 EU Whistleblower Directive.

  347. 347.

    Recital 44 EU Whistleblower Directive.

  348. 348.

    Article 19(o) EU Whistleblower Directive.

  349. 349.

    Article 20(1)(a) EU Whistleblower Directive.

  350. 350.

    Article 20(1)(c) EU Whistleblower Directive.

  351. 351.

    Recital 99 EU Whistleblower Directive.

  352. 352.

    Recital 96 EU Whistleblower Directive.

  353. 353.

    CM, Recommendation CM/Rec(2014)7 on the Protection of Whistleblowers, 30 April 2014, Appendix, Point 26.

  354. 354.

    Article 21(6) EU Whistleblower Directive.

  355. 355.

    Article 20(2) EU Whistleblower Directive.

  356. 356.

    Article 21(2) EU Whistleblower Directive.

  357. 357.

    Recital 97 EU Whistleblower Directive.

  358. 358.

    Article 21(3) EU Whistleblower Directive.

  359. 359.

    Article 23(1) EU Whistleblower Directive.

  360. 360.

    Article 23(2) EU Whistleblower Directive.

  361. 361.

    Recital 102 EU Whistleblower Directive.

  362. 362.

    Article 25(2) EU Whistleblower Directive.

  363. 363.

    Article 25(1) EU Whistleblower Directive.

  364. 364.

    Article 24 EU Whistleblower Directive.

  365. 365.

    Council, Draft Directive of the European Parliament and of the Council on the protection of persons who report breaches of Union law (first reading) – Adoption of the legislative act = Statements, Statement by the Commission, Interinstitutional File 2018/0106(COD), No. 12460/19 ADD 1 REV 1, 1 October 2019, p. 2. Consideration already formulated by the EU Commission in April 2019, see Annex to the EP legislative resolution of 16 April 2019 on the proposal for a directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law (COM(2018)0218 – C8-0159/2018 – 2018/0106(COD)), Commission statement on the Directive on the protection of persons reporting on breaches of Union law.

  366. 366.

    EESC, Strengthening whistleblower protection at EU level, Opinion SOC/593, 18 October 2018, para 1.4.

  367. 367.

    Krebber (2016a), AEUV Art. 153, para 1.

  368. 368.

    Schmitt (2019), p. 509.

  369. 369.

    Krebber (2016a), AEUV Art. 153, para 1.

  370. 370.

    Article 153(2)(b) TFEU.

  371. 371.

    Article 153(1) TFEU.

  372. 372.

    Krebber (2016a), AEUV Art. 153, para 3.

  373. 373.

    Abazi (2017), p. 10.

  374. 374.

    Krebber (2016a), AEUV Art. 153, para 9.

  375. 375.

    Abazi (2017), p. 10.

  376. 376.

    Krebber (2016b), AEUV Art. 157, para 1; Eichenhofer (2018), AEUV Art. 157, para 2.

  377. 377.

    Krebber (2016b), AEUV Art. 157, para 36; Eichenhofer (2018), AEUV Art. 157, paras 13 et seq. On Gender equality in the workplace, see also CJ, Case C-14/83, Sabine von Colson and Elisabeth Kamann v. Land Nordrhein-Westfalen, Judgment of 10 April 1984, ECLI:EU:C:1984:153.

  378. 378.

    Kollonay Lehoczky (2019), pp. 401–425.

  379. 379.

    Council, Outcome of proceedings on the Proposal for a Directive of the European Parliament and of the Council on the protection of persons reporting on breaches of Union law: Mandate for negotiations with the European Parliament – Declarations from Member States, Austrian Statement, Interinstitutional File: 2018/0106(COD), No. 5747/19 ADD 1, 29 January 2019, p. 2.

  380. 380.

    Racho (2016), para 21.

  381. 381.

    Bauschke (2019), p. 134.

  382. 382.

    Recital 2 Trade Secrets Directive.

  383. 383.

    Nader (1972), p. 9.

  384. 384.

    Recital 20 Trade Secrets Directive.

  385. 385.

    Article 5(b) Trade Secrets Directive.

  386. 386.

    Abazi (2016), p. 1069.

  387. 387.

    Ibid., p. 1068.

  388. 388.

    Recital 98 EU Whistleblower Directive.

  389. 389.

    Article 21(7) EU Whistleblower Directive.

  390. 390.

    Article 16(4) EU Whistleblower Directive.

  391. 391.

    Article 2(a) Trade Secrets Directive.

  392. 392.

    Article 2(b) Trade Secrets Directive.

  393. 393.

    Article 2(c) Trade Secrets Directive.

  394. 394.

    Abazi (2016), pp. 1067–1068.

  395. 395.

    Recital 98 EU Whistleblower Directive.

  396. 396.

    See Recital 98 EU Whistleblower Directive.

  397. 397.

    Article 25(1) EU Whistleblower Directive.

  398. 398.

    Recital 14 EU Whistleblower Directive.

  399. 399.

    Article 2(1)(a)(x) EU Whistleblower Directive in conjunction with Annex Part 1 (J) to the EU Whistleblower Directive.

  400. 400.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 26–28.

  401. 401.

    Recital 76 EU Whistleblower Directive.

  402. 402.

    Recital 83 EU Whistleblower Directive. See also Annex Part 1(J)(ii) to the EU Whistleblower Directive.

  403. 403.

    Article 13(d) in conjunction with Article 17 EU Whistleblower Directive.

  404. 404.

    Article 4(1) GDPR.

  405. 405.

    EDPS, Guidelines on processing personal information within a whistleblowing procedure, July 2016, para 15.

  406. 406.

    Ibid., paras 11 and 14.

  407. 407.

    Article 17 in fine EU Whistleblower Directive.

  408. 408.

    Article 5(1)(e) GDPR.

  409. 409.

    EDPS, Guidelines on processing personal information within a whistleblowing procedure, para 33.

  410. 410.

    Article 32 GDPR.

  411. 411.

    EDPS, Guidelines on processing personal information within a whistleblowing procedure, paras 18-22.

  412. 412.

    Ibid., para 18.

  413. 413.

    Ibid., para 19.

  414. 414.

    Ibid., para 19.

  415. 415.

    Ibid., para 20.

  416. 416.

    Ibid., para 23.

  417. 417.

    Ibid., para 25.

  418. 418.

    Council, Proposal for a Regulation on the establishment of the European Public Prosecutor’s Office – Draft Regulation, Interinstitutional File: 2013/0255 (APP), No. 5766/17, 31 January 2017.

  419. 419.

    Council, European public prosecutor’s office: 16 member states together to fight fraud against the EU budget, 3 April 2017, Press release.

  420. 420.

    Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the establishment of the European Public Prosecutor’s Office (‘the EPPO’) [hereinafter “EPPO Regulation”], OJ L 283, 31.10.2017, p. 1.

  421. 421.

    EU Commission, The Mission of the European Public Prosecutor’s Office. https://ec.europa.eu/info/law/cross-border-cases/judicial-cooperation/networks-and-bodies-supporting-judicial-cooperation/european-public-prosecutors-office_en#mission. Accessed 13 April 2021; see also OPPO official website. https://www.eppo.europa.eu/home. Accessed 13 April 2021.

  422. 422.

    Recital 50 EPPO Regulation.

  423. 423.

    Article 4 EPPO Regulation.

  424. 424.

    Article 2(1)(b) EU Whistleblower Directive.

  425. 425.

    Recital 15 EU Whistleblower Directive.

  426. 426.

    White (2018), p. 172.

  427. 427.

    Recital 15 EU Whistleblower Directive.

  428. 428.

    EU Commission, Impact Assessment accompanying the EU Whistleblower Directive proposal, pp. 15–17.

  429. 429.

    EU Commission, Annexes on the EU Whistleblower Directive proposal, Annex 5, p. 88.

  430. 430.

    EU Commission, 2019 Review of the Guidelines on whistleblowing, p. 4.

  431. 431.

    Racho (2016), paras 24 et seq.

  432. 432.

    Recital 50 in fine EPPO Regulation.

  433. 433.

    White (2018), p. 175.

  434. 434.

    Recital 49 EPPO Regulation.

  435. 435.

    Pérez Enciso (2018), p. 270.

  436. 436.

    White (2018), p. 175.

  437. 437.

    Vervaele (2018), p. 16.

  438. 438.

    Racho (2016), para 14.

  439. 439.

    Article 22 EPPO Regulation.

  440. 440.

    EU Commission, A Europe that protects: an initiative to extend the competences of the European Public Prosecutor’s Office to cross-border terrorist crimes, Communication from the Commission to the European Parliament and the European Council, COM(2018) 641 final, 12 September 2018.

  441. 441.

    Article 23 EPPO Regulation.

  442. 442.

    Recital 64 EPPO Regulation.

  443. 443.

    Recital 48 EPPO Regulation.

  444. 444.

    Recital 77 EPPO Regulation.

  445. 445.

    EU Commission, Strenghening whistleblower protection at EU level, Communication COM(2018)2014 final, p. 12.

  446. 446.

    Brockhaus and Kafteranis (2020); In Germany, some have argued that an extension of the material scope may be constitutionally required see Brockhaus et al. (2020b); Brockhaus et al. (2020a, 2 December).

  447. 447.

    Schmolke (2020), p. 27.

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Yurttagül, H.C.L. (2021). A New Whistleblower Directive: Toward Stronger Protection in the EU. In: Whistleblower Protection by the Council of Europe, the European Court of Human Rights and the European Union. European Union and its Neighbours in a Globalized World, vol 3. Springer, Cham. https://doi.org/10.1007/978-3-030-78059-3_8

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  • DOI: https://doi.org/10.1007/978-3-030-78059-3_8

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  • Publisher Name: Springer, Cham

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  • Online ISBN: 978-3-030-78059-3

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