A “reference” is made by a:

Understanding the source of a "reference" in an official context is key. A Department is typically an official administrative body empowered to make formal references or referrals as part of its operational or legal duties. This implies a structured, official communication or action.

• Court: Courts issue judgments, orders, or directives, not typically "references" in this administrative sense.
• Citizen: Citizens usually make complaints, requests, or provide information, but do not make formal "references" as an official act.
• Whistle-blower: A whistle-blower reports wrongdoing, which is distinct from making a formal "reference" by an official entity.

Therefore, a Department, as an organized governmental unit, is the most appropriate entity to make a formal "reference."