The reason for referral is that there have to be some reasonable grounds to believe that offences may have been committed under the act. It will be up to the commissioner to decide whether the facts that were presented to him do warrant an investigation and to determine if, at the end of the day, in his own professional opinion, offences may have been committed. Again, it will be put to the test of the DPP--the Director of Public Prosecutions--later on, who will have to be satisfied, and ultimately to the test of a judge, who will have to decide if the evidence gathered amounts to the commission of offences.
On July 15th, 2008. See this statement in context.