It is 100% clear. As Leilleath posted in this very thread:
They are not. You just don’t like the policy.
Nothing is at the whim of the playerbase. Players are allowed to report for anything they feel is against the rules. They are not required to be 100% correct, they are not required to provide a reason, they are not required to provide proof.
Blizzard reviews each report and THEY decide for themselves what is actionable or not.