Sector profile

Human services - snapshot and key insights

Human services provide a range of health, welfare and social services to support the needs of individuals, families and communities. The human services sector comprises the government departments and portfolio agencies responsible for the delivery of human services to the community, as well as the community service organisations (CSOs) or not-for-profit bodies delivering human services on behalf of the government. 

Victoria’s human services sector is large, complex and delivers a range of welfare and social services to support individuals, families and communities. The Department of Families, Fairness and Housing and the Department of Health, with their portfolio agencies, lead the delivery of these services from Government, including through the significant public funding of more than 1300 CSOs to deliver services on their behalf. 

IBAC can receive and investigate complaints against these CSOs in certain circumstances, including if they are delivering services funded by, or on behalf of, government. 

The government agencies and CSOs vary significantly in size, resources and the services they provide. This means the corruption risks and drivers for each can differ and should be considered in their own unique context.

  • Key corruption risks (for entire sector – both government agencies and funded organisations):   

    • poorly managed conflicts of interest, including by employees providing services to their communities
    • fraud, for example in the areas of managing and reporting on the use of funding
    • theft of funding or assets
    • misuse of resources
    • bribery, for example to receive services or reduce waiting periods for services, for example in social housing.

    Key corruption risks (for community service organisations):

    • conflicts of interest in board governance and recruitment
    • poor oversight of financial payments and misuse of funding
    • limited systems and controls
    • poor governance and poor understanding of roles and responsibilities.

    Key prevention and detection strategies:

    • strong conflict of interest frameworks
    • information security management
    • procurement policies and procedures
    • risk assessment strategies underpinned by regular training and audits
    • regular and random audit regimes
    • positive workplace culture, including the regular reinforcement of appropriate behaviour and reporting of improper conduct
    • comprehensive education and training schedule for staff and boards, including training on governance

    Most common types of allegations:

    • Inaction in relation to the official powers by an organisation or employee (such as inadequate care or custody, a failure to investigate complaints). This could also be an organisation or individual failing to act to meet their obligations or to carry out certain responsibilities.
    • Breach of professional boundaries (including bullying, harassment and discrimination) in relation to official capacity (including how staff interact with one another and clients) and official powers (including custody and care, investigations and enforcement activity)
    • Obstruction of justice, interfering with a witness, such as in a formal investigation
    • Misuse of resources, unauthorised use, and unauthorised disclosure of information or disposal (such as inappropriate disposal of assets)
    • Favouritism, seeking or showing preferential treatment and hiding or failing to disclose a conflict of interest
    • Collusion, manipulate a process (like a recruitment or procurement process)
    • Fraud in financial management
    • Force including intimidation or coercion, threats or physical force.
    • Corrupted or improper recruitment and promotion processes, and complaints management (such as internal investigations)
    • Information management, including unauthorised access, alteration, use, disposal, and release of information
    • Personal or off duty activities that include inappropriate associations, for example with members of the community which would create a conflict of interest.
  • The human services sector comprises the public bodies and agencies responsible for the delivery of human services to the community, as well as the community service organisations or not-for-profit bodies delivering human services on behalf of the government.

    The Department of Families, Fairness and Housing and the Department of Health, alongside their portfolio agencies and other Victorian Government departments, deliver human services (being a range of welfare and social services) to support individuals, families and communities. This includes through departments providing significant public funding to more than 1300 community service organisations to deliver services on their behalf.


    Services provided include:

    • drug and alcohol counselling
    • aged care
    • social and public housing
    • homelessness support
    • support for children and families
    • family violence and crisis support
    • some disability services
    • mental health and wellbeing
    • maternal child health
    • community health.

    The Human Services Standards and service agreements hold community service organisations to account and ensure effective governance and delivery of services for funded activities within the sector’s scope.  From July 2024, community services organisations and the sector will move to the Social Services Standards, which will be the foundation for the regulatory framework and replace the Human Services Standards  .

    There is a range of applicable legislation related to human services based on the type of service being provided. There are also various Commonwealth and Victorian public bodies with regulatory, oversight and/or accreditation functions based on the types of services provided.

  • IBAC accepts complaints and information about corrupt conduct by public bodies and officers delivering human services.

    If the complaint or information is about a business or not-for-profit organisation delivering human services on behalf of government, this may also be within IBAC’s jurisdiction if they are considered to be performing a public function under the IBAC Act – for instance, if it is alleged there is corruption associated with the funding provided from a Victorian government agency to deliver a community service.

    IBAC prioritises investigation of serious or systemic corruption and misconduct matters. IBAC can also refer complaints to Departments for investigation and plays an ongoing oversight role by reviewing these referred investigations.

    When to report to IBAC

    Suspected corruption and misconduct can be reported directly to IBAC or to DFFH (or the relevant department). Under the IBAC Act, DFFH must notify IBAC of any matter which it suspects on reasonable grounds involves corrupt conduct occurring or having occurred.

    Upon receiving a complaint or notification, IBAC assesses the allegations and decides to either investigate, dismiss or refer the allegations to another agency, such as DFFH.   IBAC may decide to refer because it doesn't involve public sector corruption, falls outside who IBAC is authorised to investigate or because it should go to another agency that is better placed to act on it. IBAC selects certain cases for review to help ensure referred matters have been investigated fairly and thoroughly.

    • Most (89%) Victorian Government employees across all sectors agree that they know what behaviour constitutes corruption
    • Six in 10 employees (61%) agree that corruption is a problem in Victoria, fewer (20%) agree that it is a problem in their workplace
    • Most Victorian Government employees believe a report of corruption would definitely (35%) or probably (26%) be taken seriously
    • The behaviours considered to be a high risk of occurring are favouritism and breach of professional boundaries (particularly bullying and harassment)
    • Most Victorian public sector employees (84%) describe the ethical culture of the organisation as ‘strong’ (44%) or ‘moderate’ (40%)
    • Over a third (37%) of public sector employees believe their organisation performs very well when it comes to ensuring strong policies, procedures and controls are in place. 40% considered it to be adequate.
  • One of IBAC’s core functions is to receive and assess complaints (from the public) and notifications (from departments and agencies) alleging public sector corruption or police personnel misconduct. IBAC also receives complaints about a range of other conduct it cannot investigate because it is not alleged corruption or misconduct. 

    IBAC considers complaints made about corruption and misconduct (including improper conduct under the Public Interest Disclosure Act 2012 (Vic) (PID Act) concerning a public officer or a member of Victoria Police personnel. IBAC also receives mandatory notifications from principal officers of public sector departments and agencies and Victoria Police. A single complaint or notification may contain several separate allegations that are individually assessed to determine an appropriate outcome. Possible outcomes of our assessment of each allegation are:

    • investigate
    • refer the allegations to another agency
    • dismiss, generally because they did not involve corrupt conduct or police misconduct; were outside the scope of who we investigate; lacked substance or credibility, or were frivolous or vexatious; or have otherwise already been dealt with by IBAC or another agency
    • for PID notifications, return the allegations to the notifying agency if IBAC assesses the original complaint as not being a public interest complaint
    • take no further action.

    This profile includes data about allegations received by IBAC. There are limitations with the use of this data, including:

    • allegations are unsubstantiated at the time of receipt
    • allegations can be incomplete, lack detail, be from an anonymous source or may not individually name the subject person of the allegation
    • allegation data is not a comprehensive or reliable indicator of the actual prevalence of particular activities, or the risk mitigation practices and compliance activities already in place.

    Despite these limitations, analysis of allegations can assist in identifying trends or patterns and provide practical examples of identified trends.

    The following data includes allegations received and assessed by IBAC between 1 July 2018 and 31 December 2022. It does not contain the outcomes of any investigations undertaken as a result of these allegations.

Graph 1. Allegations by outcome (1 July 2018 to 31 December 2022)

Graph 1. Allegations by outcome (1 July 2018 to 31 December 2022)

IBAC received 295 cases containing 623 allegations related to the human services sector between 1 July 2018 and 31 December 2022. Overall, the number of cases received by IBAC against the human services sector has generally been trending up since 2018, likely due to an increased awareness in the public sector and the community about IBAC’s ability to receive complaints.

No allegations resulted in an IBAC investigation. IBAC must prioritise the investigation of allegations that include serious and systemic corrupt conduct, and the definition of corrupt conduct is quite specific.

Of the 623 allegations received by IBAC, approximately:

  • 81% of allegations were dismissed or not proceeded with
  • 15% of allegations were referred to another agency for actioning. These allegations and the supporting information were considered more appropriate for another agency to action, after taking into account IBAC’s resources and thresholds for investigation.
  • less than 4% of allegations were returned to the agency who submitted them, assessed as not meriting further action, or the complaint was withdrawn by the complainant (shown in this graph as ‘Other’).

The referred allegations were referred to one of four different state government Departments or the Victorian Ombudsman, demonstrating the complexity of oversight of the human services sector.

Graph 2. Allegations by organisation type (1 July 2018 to 31 December 2022)

Graph 2. Allegations by organisation type (1 July 2018 to 31 December 2022)

IBAC receives more cases about public sector departments and agencies providing human services, likely due to the community and people within the sector being more aware that these are within IBAC’s jurisdiction. IBAC, however, also receives an increasing number of allegations against not-for-profit bodies in the human services sector and a small number against businesses providing human services on behalf of government. This is because many human services are outsourced to these bodies by public sector agencies, and because of this, they may fall under IBAC’s jurisdiction.

Graph 3. Allegations by behaviour and function (1 July 2018 to 31 December 2022)

Graph 3. Allegations by behaviour and function (1 July 2018 to 31 December 2022)

IBAC categorises all allegations by the behaviour being alleged and the organisation’s function or activity alleged to have been corrupted. For more information on this framework, please see IBAC’s Behaviour and Activities Model.

The most common type of allegation against the human services sector was inaction, which often involves a failure to obey instructions or policies, or inadequate care or supervision. Inaction featured as an alleged behaviour across all three types of human services agency but there was greater diversity in the types of alleged behaviour within not-for-profit organisations.

Other types of alleged behaviours include:

  • breach of professional boundaries includes subcategories such as bullying and harassment, and discrimination
  • obstruction of justice can include interfering with a witness, such as in a formal investigation
  • misuse of resources can include the subcategories of unauthorised use, and unauthorised disclosure or disposal
  • favouritism can include seeking or showing preferential treatment and hiding or failing to disclose a conflict of interest
  • collusion can include subcategories such as manipulation of a process (like a recruitment or other selection activity)
  • fraud includes false invoicing or false accounting
  • force including intimidation or coercion, threats or physical force.

Of interest, IBAC conducted perceptions of corruption surveys of public sector employees in 2022 that found both favouritism and breach of professional boundaries were considered to be behaviours that were of a high risk of occurring.

Commonly, allegations were often linked to an organisation’s official powers such as the investigation, custody and care of people as well as enforcement and legal proceedings. Other types of organisational functions where the alleged behaviours occurred include:

  • official capacity such as engagement with internal and external stakeholders, administrative actions or employees’ fitness for duty
  • People management includes recruitment and promotion, and complaints management
  • Financial management includes accounts payable and receivable, financial statements and reporting, and payroll
  • Information management includes access, alteration, use, disposal and release of information
  • Personal or off duty activities can include inappropriate associations.