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LAW ENFORCEMENT REVIEW BOARD No. 029-95 IN THE MATTER OF the Police Act, C.P-12.01, Stats. Alta., 1988 and the Regulations. AND IN THE MATTER OF the Appeal of Ms. E. McCoy concerning a complaint against Inspector J. Cessford (Ret.), Detective Bonetto (No. 487) and Detective Findlay (No. 1140) of the Edmonton Police Service. JUDGMENT OF THE BOARD THE COMPLAINT The appellant filed a complaint on March 15, 1991, concerning the conduct of Inspector Cessford and Detectives Bonetto and Findlay, regarding events of March 14, 1991. The complaint was supplemented with further materials by a letter from P. Michalshyn, dated September 10, 1991. On March 17, 1991, a response was provided by Deputy Chief J.F. Henderson, advising that the complainant's "inquiries" had been reviewed and that the police involvement had been satisfactory. This response was unlawful in that it failed to satisfy the requirements of Section 47(5)(c) of the *Police Act*. It was furthermore improper to have classified the complaints of the appellant as inquiries. - 2 - On September 10, 1991, a letter was forwarded to the Chief of Police by Mr. Michalshyn, advising that an appeal would be made to this Board. On November 12, 1991, the Chief of Police responded to Mr. Michalshyn and advised that the original investigation had been suspended as the matter had been thought to be, "informally resolved". It was suggested that an appeal to this Board be held in abeyance. Counsel for the appellant agreed to holding back on the appeal by letter dated November 20, 1991. Almost one year then passed before the Chief of Police next dealt with the matter through correspondence. On November 3, 1992, a letter was forwarded to Mr. Renouf (counsel for the appellant), advising that the complaints were unfounded. The response contained only the following terse content concerning the investigation and findings: "In reviewing the information, facts and evidence gathered, and considering the circumstances surrounding the incident, I have concluded that there is insufficient evidence to prove any disciplinary misconduct. I have classified the complaint as "NOT SUSTAINED". The appellant, on November 25, 1992, filed an appeal to this Board. The grounds mentioned in the Notice were as follows: 1. That the Respondent erred in law in failing to advise the Appellant pursuant to Section 47(5)(c) of the *ACT* of the grounds on which the disposition of the complaint was made; 2. That the Respondent erred in law under Subsection 45(2) and 45(3) of the *Act* in failing to conduct, or designate a police officer to conduct a hearing into the matter which was the subject of the complaint; 3. That the Respondent erred in law in misconstruing the test applicable to investigating and responding to a complaint pursuant to the provisions of the *Act* by determining that the complaint could be sustained only if there was sufficient evidence to prove disciplinary misconduct whereas the *Act* - 3 - requires the Chief to conduct a hearing into the matter where the Chief is of the opinion that the action of the police officer may constitute a contravention of the regulations; 4. That the Chief erred in law in holding that the complaint was not sustained as there was ample evidence to support misconduct on behalf of one or more police officers, or at the very least made the subject of a hearing pursuant to Section 47 of the *Act*. By way of relief it was recommended that the Board direct the laying of disciplinary charges; or that the Board direct a disciplinary hearing; or that the matter be re-investigated. The appellant's original complaints were directed at the treatment of M.G. (age 10), and D.G. (age 9), at Edmonton Police Headquarters, on March 14, 1991. In a general context, it was alleged that the children had been improperly dealt with. In particular, it was complained that; (a) The children had been subjected to approximately six hours of questioning, and that three hours of this questioning was objectionable interrogation. (b) That the children had been detained without the permission of their mother and separated from their mother, absent her consent. (c) That the children were locked into rooms or a room. (d) That the children were present at times when their mother was called a liar. (e) That the children were intimidated and verbally abused. (f) That the children were told they would be placed with Social Services and that their mother would be jailed. - 4 - (g) That the persons responsible for the mistreatment and abuse of the children were Inspector Cessford and Detectives Bonetto and Findlay. THE EVIDENCE Donald Hughes Detective Hughes testified that in 1992, he was assigned to the Internal Affairs Section of the Edmonton Police Service and had received instructions to investigate the appellant's complaints. As a consequence, he spoke with several persons including the officers subject of the complaint. In addition, he reviewed a video tape that had been taken of the children during their time at the police station. In due course, his report went to the officer in charge of Internal Affairs; Inspector Prather. Detective Hughes also gave evidence concerning the room in which the children were interviewed. The room, known as the "soft room", was at that time, equipped with chairs, a table, and lamps. It was also designed to permit video-taping in a surreptitious context. According to Detective Hughes, there were no policies and procedures in place, that he was aware of, concerning the interviewing of children. It was also given in evidence that Mrs. G. was interviewed by Detective Hughes during his investigation. Mrs. G. directed her complaints at Inspector Cessford and Detective Findlay, however, Detective Bonetto was excluded from her allegations of complaint. Mrs. G. was interviewed on or about April 19, 1992. Reed Leary Mr. Leary testified that in 1991, he was a corporal in the Royal Canadian Mounted Police, stationed in Edmonton. During that time, he was assigned to the Intelligence Unit and - 5 - was engaged in investigations concerning cult and religion motivated crimes. During March of 1991, he was working with Detective Montgomery, of the Edmonton Police Service, on matters of mutual concern. The investigation concerning the (G.) children became of interest to Corporal Leary and Detective Montgomery as it related to members of the Church of Scientology. The conduct of several persons in the Church were of interest to the police and research had been carried out in that regard. The (G.) family had involvement in the Church prior to March of 1991, and their Church connection was known by Corporal Leary. Mrs. G. and her children had met with Corporal Leary prior to March 14, 1991. Corporal Leary testified that he received a call from Mrs. G. on March 14, 1991. Mrs. G. stated that she was at City cells and Corporal Leary was requested to attend. In response, Corporal Leary and Detective Montgomery attended at the police station sometime during the afternoon. On arrival, some discussion took place with Inspector Cessford and the investigating officers, Detectives Bonetto and Findlay. Mrs. G. and her children were observed. The children appeared, "agitated, nervous and fidgeting". Mrs. G. was, "upset and crying". An offer was made by Corporal Leary to assist the investigation, however, the offer was rejected. It was explained by Corporal Leary and Detective Montgomery that investigations in the Scientology context could easily, "get out of hand", and that they felt their experience would be an asset. Inspector Cessford, however, appeared annoyed that they were present and declined any form of support. Inspector Cessford offered that he had dealt with Mrs. G. before and that she (Mrs. G.) and the children were being untruthful. Inspector Cessford appealed to be frustrated by the (G.) matter and Corporal Leary offered that, "we were written out of it"; by way of reference to the investigation. Corporal Leary considered this approach, "uncommon", as help is seldom rejected. It was particularly - 6 - unusual in that Corporal Leary and Detective Montgomery had considerable experience concerning investigations of this nature. Kenneth Montgomery Detective Montgomery gave evidence that in March, 1991, he was working Joint Forces Intelligence with Corporal Leary of the Royal Canadian Mounted Police. Part of their investigations concerned conduct of members of the Church of Scientology. Mrs. G. and her children were in some fashion involved with the Church of Scientology during this time. On March 14, 1991, Detective Montgomery attended at police headquarters with Corporal Leary. Mrs. G. was present with her children. The condition of the children was not remembered, however, Mrs. G. was upset and crying. Assistance was offered to Inspector Cessford, however, it was declined. Detective Montgomery observed that such a rejection was not an uncommon response. Detective Montgomery also gave evidence that he advised Inspector Cessford that members of the Church of Scientology could be very threatening. The G.'s had been subjected to various intimidations. M.G. was known to Detective Montgomery as a child who had been, "indoctrinated since birth". She was accordingly capable of deceitful practices and manipulations, difficult to detect. In general, Detective Montgomery described some members of the Church as dangerous individuals as their credibility in the police context was low. An alibi offered by most members of Scientology would be of little weight in Detective Montgomery's estimation. Alfred Rediger Dr. Rediger testified before the Board as an accepted expert in psychology and child sexual abuse. - 7 - Dr. Rediger prepared a report concerning his opinion of the police interviews on March 14, 1991, with M.G. and D.G. The report (Exhibit 6) was assembled after a review and study of the video-tape (Exhibit 3) made on March 14, 1991, of the (G.) interviews. Neither the children or Mrs. G. were personally interviewed to obtain follow-up confirmations as to consequences of the interview technique and procedures. The following are extracts from Dr. Rediger's report: Interview (page 5) In the initial interview, 1:16 P.M. on March 14, the detective makes statements to M. such as "I'll go to the end of the earth to help...I don't take sides...let me be your friend...you have to believe I want to help." However, he also stated "your brother told us it isn't true ...is your brother lying to us?...did your mother receive some phone calls this morning?" Accordingly, there is no indication that the officer was attempting to enter the child's reality. Rather, the establishment of trust was undermined by misleading affirmations of helpfulness and objectivity, accusations of untruthfulness and gathering of statements which would be used later in confronting the mother. In the major series of interviews, with two additional officers present, there is no attempt at all to establish rapport. The interview begins with an introductory statement that "our boss will talk to you." The senior officer advises that the allegations have not been corroborated. The mother is addressed in a confrontational style which includes the following statements. "I don't know how manipulative you can be...I'm not the first person to accuse you...who are you trying to kid?" At this point the mother becomes tearful. A strongly confrontational interchange occurs with the mother concerning the nature of telephone calls received that morning. At one point the officer states "I'll talk, not you." He later adds "I've had enough of this nonsense with all these false allegations...we're not getting the truth." At this point the officer states to the children "you're not fooling anyone with the act you're putting on." Up to this point the children have not been addressed and have had no opportunity to speak. The confrontation with the mother and the characterization of family members as manipulative, lying and deliberately misleading are clearly counterproductive to the goal of eliciting the children's information. Instead of focusing on the children's ability to provide information the officers display an egocentric bias. For example, the senior officer states "I want the truth - I've wasted too many man-hours in this investigation." - 8 - In the interviews under review there is no clarification of the rules of conduct. Throughout the interviews the officer's tone of voice, threats and direct statements indicate anger toward the children and their mother, e.g. "If you think there was trouble last time you won't believe how much trouble you'll have this time." "You two need a friend. If you want someone on your side tell the truth and I'll call off the troops." "I can read you like a book - you can't bluff anymore - it's over." "You're not leaving until we find out. You're getting in more and more trouble as we go along." "I'm getting a little mad now." In his first comments directed specifically at the children, the officer states "we're not getting the truth...you had best tell me the truth...why did you give us this wrong story and falsely accuse somebody...you're not fooling anyone with the act you're putting on." Shortly thereafter he adds "I can't believe anything you say." The children's concept of truthfulness is never clarified. The free narrative step does not appear in any of the interviews which I reviewed. Instead of encouraging the children to elaborate their own version of events, the officers were openly accusatory, disbelieving and threatening. The interview remained focused on specific details related to the alleged abduction. Toward the end of the major series of interviews the contamination resulting from the officer's intervention is clearly illustrated. The detective speaking to D., went on for some time in the following vein. This will be presented in court, a judge will ask "did you lie about this? This man may go to jail for nothing because you guys lied. I want nothing to do with you guys any more. You caused me a lot of pain worrying about you - then it s a lot of BS. In a few minutes I'll make a phone call, then I'm gone I will come back and take you away, "Did it happen?" D.: "What?" Detective: "Never mind what." D.: "Yes!" Detective: "Why do you lie?" D.: "I don't know." On several occasions M. referred to other instances of abuse than those connected with the abduction allegation. No opportunity for a free narrative was provided. On one occasion when M. was asked if the church official had touched her she replied "yes." The senior officer asked "How long ago, a long time ago?" M. answered "About that." The officer immediately focused back on the previous days events. Later in the series of interviews the detective asked M. "Where you assaulted?" She replied "Yes, two times, in the park and in the house." The detective replied "You're lying to me again. How can I believe you? It might have happened at the house but I don't want to run this by a prosecutor." M. stated "He touched my breast." The detective replied "Why does your whole family lie? Your mother lied, you lied, D. lied." - 9 - Summary and Conclusion In view of the literature on investigation of child sexual abuse allegations and in view of the goals specified in the interview protocol developed by John Yuille, the interviews of M. and D. must be considered the antithesis of appropriate practice. Although information about the other aspects of the investigation is extremely fragmented, it is clear that these children were interviewed without the involvement of a child protection worker or legal counsel. During substantial periods the children's mother was present. However, the antagonistic approach by the interviewers toward the mother did nothing to provide the children with an atmosphere of safety and support. The interview process was clearly under the direction of the senior officer who was not a member of the sexual abuse unit. The officer's comments also indicate some degree of rivalry with other detectives who had been involved in the matter. Accordingly, it is evident that there is a lack of coordination in the overall structure of the investigation and adequate safeguards for the well being of the children are absent. Rather than minimizing the children's trauma, the interview process was clearly traumatic to the children. This is demonstrated in M.'s recurrent tearfullness and D.'s somewhat repressed hostility. The children were traumatized by repeatedly being told that they were not believed, being threatened, being intimidated, being accused of malicious wrong doing and being subjected to the denigration of their mother in their presence. Examples of these trauma are contained in the following statements, "We'll never believe you again...If you don't tell the truth, I get madder and madder as we go...make up your mind or they will put you away (put you in a foster home you and M.) ...l will call Social Services and you'll never go home again... you're willing to go to jail if we find out it's not true?... you're lying, I can tell by looking at you...we will get a polygraph - find out if you're telling the truth... (to mother) who are you trying to kid? ...I'll talk, not you." The confrontational style of these interviews served to minimize the amount of information obtained from the children. Because of the intrusiveness of the officers, the information was highly contaminated. It is impossible to determine whether all of the children's retractions were genuine. For example, at one point M. stated that nothing had happened in the park but later she adamantly reaffirmed her allegation that Mr. A.B. had molested her there. Because of the focus on discrediting the abduction allegation, it would appear probable that valid allegations concerning other incidents of abuse were obscured beyond recognition or belief. It is quite reasonable to hypothesize that the children did concoct a false allegation out of frustration over not being believed by their father or protected by other church staff with regard to repeated incidents of abuse. It is certain that this interview failed to adequately explore these possibilities leaving an open question as to whether M., in particular, has been sexually victimized. - 10 - Because of the lack of child welfare involvement, the child protection investigation, which is mandated by law, was not undertaken within the scope of this intervention. Further, any subsequent investigation would be seriously compromised by the tactics utilized in these interviews. It is extremely probable that the children's allegations do represent real trauma in their lives. This investigation did not in any way rule out the possibility of sexual abuse. In addition, the children would be subject to severe emotional abuse if they were being coerced into making such allegations by their mother. Children under twelve years of age are considered to be of "tender" years and their behavioral dysfunctions are considered as symptomatic of trauma rather than as deliberate and culpable anti-social actions. This perspective was not acknowledged by any of the officers involved. With regard to the criminal investigation, it is also evident that the children's retractions were obtained under duress. If the same tactics had been utilized in eliciting allegations against a suspect, there is no doubt that the children's statements would be discredited by the court. It is my conclusion that these interviews do not constitute an investigative process but represent a coercive effort by the police to discredit child witnesses because a) some of the statements were unsubstantiated and b) the police officers, for reasons of their own, had a deep bias against the children's credibility. The confrontational tactics of the officers are highly inappropriate for use with children and, indeed, would be difficult for an adult to withstand. In view of the existence of an investigative protocol which the Edmonton City Police sex crimes unit has endorsed and the availability of effective and much less intrusive interview techniques, I must conclude that these interviews were highly improper and represent, at best, a lack of skill and training as well as a lack of awareness with regard to child development and child sexual abuse dynamics. Dr. Rediger also testified that the children were placed under extreme stress by the tactics used during the interviews. The result was emotional break-down on numerous occasions by both children, resulting in tears, confusion and hostility. No respect whatsoever was shown towards the children and measures were used to demonstrate their complete loss of control. The police in conducting the interviews, were extremely harsh and neglectful of the children's needs. The process was officer centered in the context of police needs. In Dr. Rediger's opinion, it was impossible to come away from the interview with any reasonable assurance whether the children's allegations were false or true. Retractions made by the children could not be considered sound as the police process obliterated a reasonable basis - 11 - for assessment. The shaming and badgering of the children made it impossible to interpret the children's true reality. On cross examination, Dr. Rediger acknowledged that he was unaware of the complete history leading up to the police interviews on March 14, 1991. He also conceded that he was unaware of several of the allegations made by the G. children concerning prior sexual assaults. It was also acknowledged by Dr. Rediger that he was unfamiliar with the contents or nature of police interviews with the children prior to March 14, 1991. It was furthermore the case that Dr. Rediger was not knowledgeable that the police had been provided reasonably solid alibi's for some individual's who had allegedly assaulted, or abducted, the children prior to March 14, 1991. However, Dr. Rediger maintained that the existence of the investigation background known by the police did not remove the obligation to conduct proper child interviews. An angry, and abusive response by police to false allegations from children was an inappropriate and unprofessional reaction. If the allegations from the children were considered false by the police, that circumstance underscored the need for skillful intervention, not coercion and antagonism. A child social worker should have been involved to help mediate and assist in determining what was truly occurring in the lives of the children. A helpful and not punitive approach was appropriate considering that young children, and not adults, were involved. Fabio Bonetto Detective Bonetto gave evidence that he was a twenty-six year member of the Edmonton Police Service. By 1991, he had approximately seven years experience with the Sex Crimes Unit. According to Detective Bonetto, he had investigated hundreds of cases of sexual assault over the years. Detective Bonetto was unaware of any protocol concerning child sexual assault investigations. A collection of "papers" was understood to be available for police personnel interested in the study of sexual assault. - 12 - Detective Bonetto was aware that various study documents were now available in the Child Abuse Unit. He had no knowledge, however, of several exhibits filed on the appeal, providing guidance and guidelines for investigation of child sexual abuse matters. A police service video-tape (Exhibit 29) on child abuse victims had not been reviewed by Detective Bonetto until the day before his evidence to the Board. Most of the study documents were entirely new to Detective Bonetto and had never been circulated to his attention. Detective Bonetto testified that he first became involved with the G.'s in March of 1991. However, a call had been received in February, 1991, from Mr. G. Boldt, of Social Services, concerning allegations made by M.G. against a member of the Church of Scientology. An interview was eventually conducted with M.G. on March 1, 1991, at the Father Leo Green School. A teacher-advocate, Lucille Shallet, G. Boldt, and Detective Bonetto were present. An allegation was made by M.G. at that time, of sexual abuse at the hands of a member of the Church of Scientology. As a consequence of these discussions, a further interview as conducted with M.G. at police headquarters on the same date. On March 5, 1991, Detective Bonetto met with M.G.'s younger brother D.G., also at the Father Leo Green School. An interview was conducted and D.G. gave an account of earlier matters which tended to support the allegations of M.G. Detective Bonetto next attended at the Church of Scientology on March 6, 1991, for an interview with A.B. On March 7, 1991, A.B. attended at police headquarters. The allegations made by M.G. were made known to A.B. The allegations were denied. A.B. was permitted to contact his legal counsel. A.B. then left the police station at approximately 2:20 p.m. At approximately 4:29 p.m., on the same date, a call was received from D.G. On police attendance it was alleged that M.G. had, just prior to police attendance, been assaulted by A.B., who had also attempted to abduct her into a motor vehicle. D.G. provided that he was a witness to all these events. - 13 - On March 8, 1991, Detective Bonetto and Detective Findlay attended at the home of A.B. A.B. was then arrested for sexual assault, unlawful confinement, and sexual interference. A.B. was subsequently transferred to police headquarters and placed in cells; bailed out the next day on a cash basis. A four count information laid against A.B., on March 8, 1991, was dismissed on April 15, 1991; the Crown calling no evidence. On March 13, 1991, a further call was received by the police, alleging a further abduction. On investigation, it was alleged that M.G. and D.G. had been violently forced into a motor vehicle by two males and a female, who then fled from the area. The children were located approximately two hours later at a restaurant some distance away from the alleged place of abduction. The children were then interviewed and M.G. positively identified two abductors as known members of the Church of Scientology. M.G. was certain in her identification as she had been introduced to the abductors on a prior occasion. According to Detective Bonetto, he believed the allegations made concerning the events of March 13, 1991, as well as the prior complaints of sexual assault and attempted abduction. As a result, he located one of the persons (D.H.) alleged to have participated in the abduction and arrested her for Unlawful Confinement. D.H. was then transported to police headquarters for questioning. On questioning by the police, D.H. advised that she was not in the City of Edmonton during the alleged abduction. An alibi was provided and witness names to the alibi were given. D.H. was then released. The alibi was subsequently checked out and found to be reliable. On March 14, 1991, a line-up was conducted at police headquarters involving D.H. The line-up persons were reviewed by D.G. who provided that none of the persons observed were involved in the abduction. D.H. was subsequently sent on her way without charges. - 14 - In regard to the allegations concerning A.B., on March 7, 1991, Detective Bonetto received a call from A.B.'s legal counsel, Mr. J. Brimacombe. Mr. Brimacombe apparently advised that A.B. was in his office on March 7, 1991, at the approximate time that the alleged attempted abduction of M.G. had occurred. A desk calendar was subsequently provided that suggested the presence of A.B. at Mr. Brimacombe's office within a short time of the alleged incident concerning M.G. As a consequence of the solid alibi for D.H., and the persuasive alibi for A.B., Detective Bonetto came to the conclusion that the police had been deceived by M.G. and D.G. As a consequence of these developments, it was considered necessary to re-interview the children to, "get the truth". On the morning of March 14, 1991, Detective Bonetto called Mrs. G. and "requested" that a further interview be held with the children. According to Detective Bonetto, "we wanted to get to the bottom of it". Detective Bonetto testified that by this time he was satisfied the children were lying concerning the allegations of March 7 and March 13, 1991. The purpose of the interviews was, "to confirm that they had lied". At approximately noon, the children and Mrs. G. were picked up from their residence. Mrs. G. raised no objection to attending at the police station nor did the children. Both children appeared in good physical condition when picked up at their residence. The children and Mrs. G. were then transported to police headquarters. Eventually, the party attended at the "soft room" to do the interview. The purpose of using this locale was to make the children "comfortable"; the room being furnished with living room type furniture and not furnishings common to some interview facilities. The plan was that Detective Bonetto would question D.G. and Detective Findlay would question M.G. Inspector Cessford, the officer in charge of the Major Crimes Section, had been alerted prior to the interview of the developments in the police investigations. Inspector Cessford was present during portions of the interviews on March 14, 1991, and participated in some instances. - 15 - Prior to the start of the interviews, the children and Mrs. G. were taken for lunch in the police headquarters building. Inspector Cessford and the two detectives had considered that the children had been lying and that it was necessary to get to the, "bottom of it". It was the common view that the whole family needed help. No social worker, however, had been contacted to attend on March 14, 1991, and none was present during the interviews with Mrs. G. and the children that afternoon. Detective Bonetto at one time after the events of March 14, 1991, recollected that Mr. Boldt was present, however, that recollection was later considered in error; Mr. Boldt may have been present on a subsequent occasion. According to Detective Bonetto, the conclusion reached at the end of the interviews was that the, "kids were lying". It was suggested that the family obtain help through Social Services. Counselling was recommended. According to Detective Bonetto, he had not received any training concerning interviews with children from the Edmonton Police Service prior to March 14, 1991. The interview on that date was not what Detective Bonetto understood as a "disclosure interview", which was designed to obtain original information of unlawful conduct. This interview was to sort out the allegations made by the children and to obtain the true events. After the interviews Detective Bonetto understood that the children were returned to their residence by uniform officers. According to Detective Bonetto, he was advised that the children had been ill after the interviews but was uncertain if this information was correct. It was denied by Detective Bonetto that the door was locked to the soft room while the children were inside; the door could not be locked from the outside. It was also maintained that the children and their mother were free to leave at any time. Detective Bonetto had no recollection that Mrs. G. ever requested that the interviews be stopped. Detective Bonetto also testified that the police were intent on obtaining a written retraction from M.G. concerning her allegations. A written complaint had been made therefore, a written withdrawal was important to obtain. It was conceded that the interviews were stressful and traumatic for the children and that the interviewers were also emotional. It was denied, - 16 - however, that the police were angry. Detective Bonetto also denied that his declaration to the children that, "we are going to put you away", was a threat. Nor was there any impropriety in stating to the nine year old, "you are not going to go home at all". Detective Bonetto also testified that in 1991, the Sex Crimes Unit handled all allegations of sexual abuse, including those involving children. Since that time, a new Edmonton Police Service unit has been established; the Child Abuse Section. No training, however, had been provided to Detective Bonetto by 1991, concerning the interview of children; nor was in-service education made available in that regard. Douglas Cessford Inspector Cessford gave evidence of twenty-six years of service with the Edmonton Police Service. At the time of giving evidence, Inspector Cessford was no longer a member of the Edmonton Police Service, having resigned in the fall of 1994, to take up police duties in British Columbia. Inspector Cessford testified that he first met Mrs G. in 1987. At that time, she made complaints of sexual assault which later proved unfounded. The complainant eventually conceded that the allegation was concocted. It was determined, however, that no charge would be laid as Mrs. G. had a prior conviction for Public Mischief arising from false allegations. According to Inspector Cessford, Mrs. G. was, even at that time, using her children to advance fabricated allegations. On March 9, 1991, Inspector Cessford received a call from Mr. Brimacombe whom he considered very reliable. An alibi was provided at that time for A.B., concerning allegations of M.G. as to events on March 7, 1991. Mr. Brimacombe eventually met with Inspector Cessford and Detective Bonetto and provided a calendar supportive of the position concerning A.B. Mr. Brimacombe requested a police investigation to determine the true events. - 17 - The next event concerned the arrest of D.H. and the determination that D.H. ha a reliable alibi for the events of March 13, 1991. This circumstance was of considerable concern as persons were being arrested on the basis of allegations from the children. The media had become interested and stories had appeared in the newspapers concerning the arrest of A.B. It was considered vital that the police get to, "the bottom of it". Inspector Cessford accordingly instructed the investigating officers to sort the matter out. Inspector Cessford was concerned not just as to the arrests but generally for the family as well. The G. family was considered dysfunctional and in need of assistance. The family was accordingly brought in on March 14, 1991, to determine the true events. A line-up was conducted with D.H., however, the boy, D.G., failed to identify her. The line-up occurred at approximately 1:00 p.m. and provided more confirmation that the two children were lying. According to Inspector Cessford, he participated in the interviews on and off. In one conversation with Mrs. G., it was claimed by her that threatening phone calls had been received from the Church of Scientology on the morning of March 14, 1991. However, a check of the monitoring device previously placed on the G.'s phone indicated no calls had come in that morning. Mrs. G. later on indicated that the calls were only hang-ups; this being contrary to her earlier assertion that specific threatening calls had been received. Eventually, Inspector Cessford was advised by the detectives that they were not making progress with the interviews. As a result, Inspector Cessford entered the soft room and talked with the family as a group. The children were then told that they might be "taken from the mother". This was asserted by Inspector Cessford as he considered that Mrs. G. was abusing her children and that the children required help. According to Inspector Cessford, the discussions began and continued as a "confrontational" interview. - 18 - It was denied by Inspector Cessford that Detectives Leary and Montgomery were spoken of despairingly to Mrs. G. It was acknowledged, however, that the group was advised that Social Services might take custody of the children. This assertion was no more than what Inspector Cessford believed to be possible in the circumstances. According to Inspector Cessford, the "primary object" was to get help for the children and get to the "bottom" of matters. After some time, the mother indicated that the children conceded that they did not get into the car on March 13, 1991; it was merely that threats had been made towards them. D.G. eventually advised that threats alone had been made. These concessions were made early on in the interviews and the matter was then turned over to the detectives. Inspector Cessford also testified that he believed that M.G. may have given an accurate account of events alleged to have occurred in November, 1990, concerning A.B. However, the other incidents in March, 1991, were "crying wolf" allegations which tended to discredit all of the allegations. Several discussions were eventually had with the Crown and it was determined that prosecutions would not proceed on any of the allegations. It had been offered by M.G. during the interviews that she had given the March story concerning A.B. as she wanted to get A.B. in trouble. It was also indicated by M.G. that she wanted to get the Church to stop, "harassing us". After the events of March 14, 1991, further complaints continued to arise from Mrs. G. In all, some twenty-six complaints were tendered ranging from sexual assaults to shootings at the G. residence. Eventually, twenty-four hour surveillance was placed on the G. family. A large complement of police officers were required to support this manner of operation. The whole affair had by then attracted increased media attention and high profile reporting in the print context. Eventually a complaint came in from Mrs. G. in April, when surveillance was operating on the G. residence. The allegation concerned the conduct of two men forcibly inserting - 19 - firearms into vaginas. These allegations were proved to be outright fabrications as the surveillance team had followed the G. family and no such event had occurred. On May 8, 1991, a meeting was had by the police with Mrs. G. All twenty-six allegations were then conceded to be fabrications. It was insisted that the family obtain professional help. That event brought the police involvement to an end. Some time later, Mrs. G. attended the police station and apologised for her conduct. The appellant (Ms. McCoy) by that time, had become involved, but Mrs. G. was no longer interested in the concerns raised by the appellant. In the end result, Mrs. G. agreed there would be no more complaints. She also agreed that she would obtain counselling; the police agreed not to lay Mischief charges. On cross examination, Inspector Cessford testified that he had not received any specific training regarding the interviewing of children. He had, however, attended various crime investigation courses over the years. It was also provided that the decision not to prosecute was made by the Crown, not the police. The events of November, 1990, concerning A.B. continued to be a police concern even after the allegations of March, 1991, were discredited. According to Inspector Cessford, the atmosphere during the interviews on March 14, 1991, was one of police frustration and some anger. The children were tearful at times and angry at others; the whole event was described as traumatic for the children as were the lives in general for these young persons. The interviews were not designed to minimize trauma but to get to the bottom of the allegations. Inspector Cessford was unaware at the time of any service protocol concerning the interviewing of child witnesses, and he was not sure if a Social Services person was present on March 14, 1991. Inspector Cessford further testified that the soft room at that time, could be locked. He was uncertain who had the key on March 14, 1991, but believed it to be Detective Bonetto. Inspector Cessford agreed that the interview had "unfortunately" turned "confrontational" with the police. It was conceded that he (Inspector Cessford) had, "forced it to go that way". The truth was needed and it was needed to, "force them" to give the true events. It was agreed, - 20 - however, that the results were not effective. It had been hoped to, "shake the truth out of them", by the interview measures that were used. It was also conceded that some of the comments made to the children could be perceived as "threats"; these observations, however, were just as much promises as anything else, as Social Services intervention was a clear possibility. It was agreed that the experience was traumatic and that the, "whole process was hard on these children". John Findlay Detective Findlay testified of fifteen years service with the Edmonton Police Service. In June of 1991, he was promoted to detective rank and was acting in that capacity prior to June. During the events of concern, he had been assigned to the Sex Crimes Unit on a temporary basis. That assignment had begun approximately March 1, 1991. At that time, Sex Crimes investigated sexual offence allegations concerning both adults and children. Matters concerning children were organized under a separate Child Abuse Unit subsequent to March 1, 1991. Detective Findlay testified as to the arrest of A.B. much the same as Detective Bonetto. A.B. was transported to police headquarters, charged, and then placed in cells. According to Detective Findlay, he had no dealings with Mr. Brimacombe. On March 13, 1991, Detective Findlay interviewed M.G. at police headquarters in the soft room. M.G. gave an account of abduction by three persons near 119 Avenue and 91 Street, Edmonton. The female person was positively identified as D.H., a person known to M.G. from the Church of Scientology. A male person, D.S., also known to M.G., was involved as a party to the abduction. The third person was an unknown male. The interview of M.G. took approximately forty-five minutes to complete. Detective Bonetto interviewed D.G. As a consequence of the allegations (considered credible at that time), D.H. was arrested and brought in for questioning. An alibi was provided by D.H, which, when checked on the morning of March 14, 1991, appeared supported by independent witnesses. It was decided in consequence that the children would be re-interviewed to, "get the truth". - 21 - The children and Mrs. G. were accordingly picked up at approximately 11:30 a.m., on March 14, 1991. No reluctance or objection was offered in regard to attendance with the police. No person was arrested and no indication of illness was displayed by Mrs. G., or the children. At approximately 5:00 p.m., the interview with the children concluded and they were provided transportation to their residence. At approximately 1:00 p.m., after lunch, a line-up was conducted concerning D.H. D.G., however, failed to identify D.H., although she was in the line-up group. The children were then separated. Detective Bonetto "took" D.G., and Detective Findlay "took" M.G. The first portions of the interview were rot recorded and were "low key". They continued for approximately one half hour; M.G. stuck to her story concerning the abduction. Inspector Cessford was eventually contacted and brought into the process as he was an, "experienced interviewer" and had some background with the family. According to Detective Findlay, he was not "angry" during the interviews; he was simply attempting to, "get the truth". As far as Detective Findlay recalled, a social worker was not present. Once written recantations were obtained from the children, the interviews ceased. On reviewing the video-tape (Exhibit 3 at 53:46), Detective Findlay agreed that it appeared at one time in the interview that he entered the soft room and placed something in his pocket. It was not denied that this may well have been a key to an exterior door lock for the soft room and that M.G. may have been locked into the room. In this regard, Detective Findlay testified that he "accepted" that the door had been locked and that M.G. had in fact been locked in at times during the interviews. Detective Findlay also agreed that he had raised the prospect to the children that they might go to "jail". This was offered even though Detective Findlay was aware that nine and ten year olds may not be incarcerated. The comments were made, however, to obtain a "retraction", and to demonstrate the seriousness of the situation. - 22 - Video-Tape and Transcripts (Exhibits 3, 9) The video-tape of the interviews of M.G., D.G., and Mrs. G., on March 14, 1991, include the following content: (a) An interview between Detective Findlay and M.G. commencing at 13:10 hrs. Various discussions occur between M.G. and Detective Findlay. M.G. is not visibly distraught during this portion of the interview which continues off and on for some time. (b) An interview commencing at 14:56 hours in the soft room. Present at the start time are Inspector Cessford, Mrs. G., M.G., D.G., and the two investigating officers. The interviews go on from the start time to approximately 16:30 hours. At times, the mother is present but most often not, as Mrs. G. is escorted out of the soft room prior to 15:24 hours. The children are aggressively interviewed by the detectives, at times together, at times alone. D.G. is removed at 15:34 hours by Detective Bonetto for separate interviewing, elsewhere. At 16:03 hours, D.G. is returned to the soft room. At that time, Detective Bonetto instructs M.G. to call her brother D.G. a "liar". This apparently arising from a signed statement made shortly before by D.G., recanting some of the prior allegations. At various times throughout the interviews, both children are visibly in tears and emotionally distraught. Voices are raised at various times by the children and the interviewers. At one point, Inspector Cessford can be observed smoking in the soft room; the female M.G. is reduced to coughing at various times, whether from illness, stress, or otherwise. The children are provided soft drinks or other beverages by the officers during the interview process. (c) An interview commencing 13:03 hours on March 20, 1991, with D.G. An interview commencing at 13:23 hours with M.G., concluding at 13:44 hours. During these interviews various retractions are made by both children as to the allegations of March 7, 1991. and March 13, 1991. The interviews are not apparently traumatic and no obvious emotional upset is noted. - 23 - With respect to the transcript of the video-tape, the following are excerpts that the Board considers worthy of particular note. It needs to be pointed out, however, that on numerous occasions during the interviews the investigating officers speak to the children in a benign and non-threatening manner, and offers to obtain help for the children are not uncommon. The Board considers it essential that the matter be looked at in the context of the whole and not piecemeal, as an unconnected event. The following are taken from the transcript, for the most part, in the order of occurrence: Inspector Cessford ...Well, it's not going to work. And I want the truth from all three of you before you leave this building today and I want this thing resolved...Now I want the truth from the three of you before you leave this building today (page 6). ...I'm going to leave this room for five minutes...And when I come back in five minutes, I want them to tell me the truth. Whether it be a lie of whatever it is, these two don't go to jail for their lies, but I want the truth (page 12 - 13). Detective Bonetto ...Would you like to go in a youth home? Would you like to be separated from your family?...Well that's what's gonna happen... We're gonna phone Social Services and ah, get you guys out of that house. Cause you're not being looked after...They're gonna split you guys up (page 24). ...You're gonna go to court and they're gonna put you away. Never mind A.B. they're gonna put you away. They're gonna put you in a foster home. And so is M (page 51). ...I should phone Social Services right now and you guys are not gonna go home at all (page 52). Detective Findlay ...You guys wanna go to jail? You wanna go to jail? You want your mom to go to jail? - 24 - ...You can sit there...we are not gonna quit until we get to the bottom of it (page 26). ...And like I told you, you're not leaving here until we fund out, so let's have it (page 29). ...(to M.G.) And you're willing to go to jail if it's fine...if we find out that it's not true. You're ready to go to a young offender home if we find out that you're lying in regards to this (page 60). ...Just want you to understand if we find out you're lying, that's where you're gonna go. And you won't be with your mom anymore. M.G. (age ten, to Cessford) ...will you, will you take my mom away from us? (page 34). Inspector Cessford ...I'm not taking your mom away from you (page 34). ANALYSIS Legal Context - Children Police authorities have no lawful authority in regard to children (persons under twelve years of age) unless specifically provided by Statute or lawful Court Order. Children are exempt from arrest or detention concerning criminal or quasi-criminal offences. Prior to 1984, the *Juvenile Delinquents Act*, and common law, authorized police authorities to investigate and lay charges against children as young as seven years of age. Section 12 of the *Criminal Code* prohibited criminal convictions for those under age seven and provided that those between age seven and fourteen years were only responsible for criminal acts if competent (*see R.S.C., 1953 - 54, C. 51, S. 12 and 13*). With the proclamation of the *Young Offenders Act* in 1984. the age at which police authorities had jurisdiction to investigate minors for criminal acts was raised to twelve years. - 25 - In the result a "child" (under twelve years) may not be arrested or detained by a police officer for acts from which they are exempt. This is not to suggest that police authorities are helpless to stand by when, for example, an eleven year old commits an act which would otherwise be criminal. In those circumstances, Provincial Child Welfare legislation may provide authority for the police to intervene (see, for example, *s. 4, Child Welfare Act, Stats. Alta., C. C-8. 1 (1984); s. 10, Mental Health Act, Stats. Alta. (1988), C, M-13.1*) and some reliance may be placed on Sections 25 and 27 of the *Criminal Code*, concerning the prevention of crime (also see, *Police Act (1988), s. 38 (1)*). When it is imperative that a "child" be taken into custody in such circumstances, an obligation, however, arises to turn the child over to a parent or child welfare authorities at the first reasonable opportunity. The lawful authority of the police is accordingly substantially different where a "child" falsely makes a complaint of a criminal act from that where the complaint comes from an adult. In the latter instance, all of the powers and authority of the criminal law are available to the police to review, investigate, detain, arrest, and charge the false accuser. In the former there is no authority available from the criminal law whatsoever. With a child then, the police must gain their authority from other legislation, a Court Order, or lawful permission of the child's parent or guardian. If a child makes what appears to be a false criminal accusation, and the parent or legal guardian refuses permission for police authorities to complete further interviews, there is no lawful authority (unless specifically obtained) for the police to insist or force further interviews. A refusal to permit police interviews, of course, would give the police substantial cause not to proceed with charges arising from child allegations. It is also the case that where consent is given by a parent or legal guardian, with respect to police interview of a child, that consent may be withdrawn at any time; and if a withdrawal is made, police authorities must cease involvement with the child. Even if consent is given, and never withdrawn, consent does not permit children to be treated in an abusive or harmful manner by police investigators. - 26 - In this context, it is also thought useful to point out that a "child" is entitled to protections set out in the *Charter of Rights and Freedoms (see B. (R.) v Children's Aid Society (1995), 9 R.F.L. (4th) 157 (S.C.C.)*). If an unlawful search, arrest or detention occurs in connection with a child, remedies may be available for infringement of those rights. It follows then that civil litigation may be sparked in circumstances where a child is improperly dealt with by police authorities. Factual Findings The hearing of this appeal required the Board to reach conclusions on several factual matters. In that regard, the Board is satisfied that the following circumstances have been proven on a balance of probabilities: (1) That M.G. and D.G concocted false stories, if not entirely, to a considerable extent, concerning the allegations of March 7, and March 13, 1991. That the police, as a consequence of the false allegations, initiated investigations and arrested persons. (2) That Mrs. G., after March 14, 1991, engaged in a series of false criminal accusations requiring the deployment of considerable police resources. (3) That on March 14, 1991, the police conducted interviews with M.G. and D.G., absent the presence of a child social worker or member of the Department of Social Services. (4) That in January, 1988, Lyle Langer was a signatory, on behalf of the Edmonton Police Service, to a protocol concerning child sexual abuse investigations. The protocol provides agreement that police officers investigating allegations of child sexual abuse should have training with respect to those matters. It also provided that the police should conduct "joint investigations", having, wherever possible, a Child Welfare official present (Exhibit - 5). - 27 - (5) That on March 14, 1991, Mrs. G. and her children voluntarily attended at police headquarters in response to a police request for interviews with D.G. and M.G. (6) That on March 14, 1991, the attendance of M.G. and D.G., which began on the basis of consent, became a detention against the consent of Mrs. G. and against the will of the children, M.G. and D.G. (7) That whatever consent had been obtained from Mrs. G. and her children as to their presence on March 14, 1991, was over-ridden by various declarations from the police that the children would not be leaving the police station until such time as the police permitted them to leave. (8) That M.G. was locked in the soft room at various times during the course of the interviews. (9) That the children, M.G. and D.G., were threatened with separation from their mother; separation from each other; incarceration in jail; and placement in foster homes or youth detention facilities. That the police officers involved in those assertions were fully aware on making those assertions that a "child" is not subject to jail or detention in youth detention facilities. (10) That Detectives Bonetto and Findlay used harsh, threatening, and oppressive interview methods with D.G. and M.G. on March 14, 1991, and that Inspector Cessford constructively authorized the Detectives to use such methods. (11) That a protocol dated July 8, 1994, has been adopted by the Edmonton Police Service concerning Child Abuse Investigations (Exhibit 28). (12) That an instructional video-tape has been produced for review on the subject of child abuse. The current version (Exhibit 29) was prepared on March 1, 1995. The first version was produced in October, 1991. (13) That since 1993, various members of the Child Abuse Unit (of the Edmonton Police Service) have attended courses on techniques in child abuse investigations. - 28 - Police Act (1988) According to Section 47(5)(c)(iii) of the *Police Act*, the Chief of Police is obligated to provide the complainant with "grounds" as to the disposition of a complaint. The letter of the Chief of Police in the present matter (of November 3, 1992) is unlawful in that "grounds" are not provided to the appellant. It is the Board's observation in this regard that disposition letters from the Chief of Police in Edmonton have, in the past, been more often than not in violation of the lawful requirement and the Board is persuaded (and has been for some time) that this practice must cease. In this regard, the Board considers it appropriate to refer this matter to the attention of the Edmonton Police Commission as that body has initial review authority under Section 41(3)(e) of the *Act*. The Police Commission is requested to review this practice with the Chief of Police as soon as possible. It may be useful in this regard if the Commission were to observe the practice of other police services in this Province. The Calgary Police Service, in particular, takes an approach which is comprehensive and informative. If the Board continues to find that Section 47(5) letters are being issued in violation of the law, steps will to be taken to obtain compliance. It is also thought appropriate to observe in this regard that the Board views the conduct of not providing grounds (apart from the obligatory legal context) as a short sighted and destructive practice for those charged with complaints responsibility. The impression that is likely to be gathered from a two line response, dismissing a complaint, is that no investigation has occurred of any substance and that the citizen is being given the "brush-off". Even if the reality is much the opposite, that perception will likely prevail, unless the citizen is able to observe that each of their complaints had been reviewed, analyzed, and met. The damage occasioned by the failure to provide grounds, or rationale, has been recognized by various police writers: - 29 - Typically, no indication is given that any attention whatsoever has been paid to the specific complaint. This project found many complainants over the years, who genuinely believed that nothing is done with complaints. They believe that the police department simply waits for a few weeks before it issues a form letter, a blanket statement absolving itself of culpability. As Paul Chevigny notes, the amorphous final letter is neither specific enough to satisfy the individual complainant nor believable enough to legitimize the process in the eyes of external observers. The report which is sent to the complainant should instead evaluate the evidence and show how the internal police conclusion was reached (*see, D W. Perez, Common Sense About Police Review (1994), Temple Press, p. 114; also see, Recommendation 257(b), Policing in British Columbia Report (1994), The Recommendations, p. 37). General (1) Organizational Responsibilities In Amery and Law Enforcement Review Board (No. 007-93), this Board provided that organizational or administrative factors should be addressed for correction prior to consideration of individual responsibility in discipline matters. The Board will accordingly now turn to what are considered organizational concerns. In the present matter the Board is persuaded that all of the officers involved in the investigation were without benefit of training concerning child witness interview techniques. It was not simply a matter of lack of outside conference or course study; there was apparently no internal or in-service training of a systematic nature. While it is understandable that out of service training may not be financially possible in these times of restraint, on-going in-service education remains a necessity for most specialized areas of police work. In this regard, the Board is satisfied that the Edmonton Police Service failed, in 1991, to ensure that those engaged in child abuse investigations had adequate instruction as to child-witness interview techniques. - 30 - The protocol signed in 1988 (Exhibit 5) was apparently not adopted as service "policy" and would seem to have received narrow distribution within the service. That Detective Bonetto would have had no knowledge as to its existence is testimony to the extent of its publication and use. In the above regard, the Board is persuaded that productive steps have been taken to remedy the deficiencies of 1991. A Child Abuse Unit is now responsible for matters concerning child sexual assault and other child related offences. A protocol is in place. The officers assigned to these duties are apparently receiving specialized training and on-going in-service education. The Board is accordingly satisfied that a reference in this regard to the Police Commission is not required. The circumstances of this matter, however, serves to demonstrate that a high degree of skill is required concerning the productive interview of children. On-going training is essential if officers are to be expected to handle the complexities that can arise in these matters. If there is any doubt in this regard, one need only review the decision in *R. v T.S. (May 2, 1995, Sask. C.A. - Unreported)*. *T.S.* is one of recent Court decisions arising from the child witness interview methods used by police in these cases has apparently (in-part) led to a complete disintegration of one of the municipal police services involved. It would also appear likely that the civil litigation pending in these matters will continue into the next decade. In any event, it is considered to be the responsibility of the Edmonton Police Commission to see that suitable policies are continued in this regard. However, the Board is not satisfied that knowledge of the legal context, mentioned earlier in this decision, has been dealt with to a satisfactory extent; if at all. There is an absence of information in the current materials and policies (Exhibit 30) which clarify to service members the limits of police authority in the context of a "child" Section 5 of the *Provincial Young Offenders Act* is noted but little guidance is provided to an officer as to the boundaries previously outlined. The Board considers this lack of information something of a deficiency which calls for Police Commission review. Although circumstances of the type now under consideration are far from the norm, the general context could easily arise again. This issue is accordingly referred to the Edmonton Police Commission for eventual discussion with the Chief of Police. - 31 - It is considered advisable to reference this matter in a context broader than the confines of child sexual abuse. Police officers, regardless of unit, may be obliged to deal with the interview of children. All officers should be alert to the limits of their authority. This information is considered by the Board to be as much a help and protection for officers, as it is for others. (2) Individual Responsibility Mr. Royal, for the three officers subject of complaint, argued that the situation the police found themselves in on March 14, 1991, was unique and exceptional. Vigourous, firm, and insistent tactics were called for under the circumstances. Two persons had suffered arrest by virtue of the false allegations of D.G. and M.G. and the matter amounted to a situation of some urgency. These exceptional circumstances warranted "tough" questioning and the officers throughout had acted in good faith. To a certain extent, the officers were in a position of dilemma and were under obligation to resolve the matter. The Board finds some merit in almost all of the submissions made by Mr. Royal; however, the characterization of the questioning as, "vigorous", "insistent", and "firm" is considered inaccurate. The Board is satisfied that the questioning was threatening, abusive, and excessive. The Board is furthermore persuaded that the opinion of Dr. Rediger better hits the mark as to the global characterization of the police questioning. The question then arising is whether or not such questioning was warranted given the difficult circumstances faced by the police. In this regard, the Board is not satisfied that such measures were justified and it is thought unlikely that any events would present themselves that would warrant the methods employed. Vigourous and insistent questioning of children may be necessary in a variety of circumstances, however, threats of jail and maternal separation are considered by this Board to be abusive and harmful. - 32 - It is also the case that the Board considers such measures as next to useless. It is common knowledge that when a child perceives a threat to be of substance, the child may respond in any manner thought useful to remove the perceived threat. In this regard, threats to a child may obtain a sought after answer, however, the response can hardly be considered reliable. In this regard, the Board considered the opinion of Dr. Rediger to be most persuasive. As previously noted, the Board is also satisfied that M.G. and D.G. were detained by the respondent officers against their will and the wishes of their mother, Mrs. G. In this regard it was considered no coincidence that Mrs. G. contacted Corporal Leary and Detective Montgomery for assistance, or that she was found in an upset and emotionally disturbed condition on their arrival. The G.'s were advised on several occasions that they would be remaining at police headquarters until such time as the police were through with them. They were not at all free to leave when they chose to do so and were advised as much. In regard to the verbal threats and abusive interview methods employed, the Board finds that misconduct has occurred in the context of Sections 5(2)(e)(iii), and 5(2)(e)(viii) of the Regulation (356/90). The Board was not satisfied that the doctrine of "good faith" was a viable position for the respondents, given the excess that occurred; even granted the difficulties that presented (see Johnson and Law Enforcement Review Board (No. 005-94)). The Board will now turn to the matter of penalty concerning the found misconduct To a great extent, the Board is satisfied that Inspector Cessford is responsible for the course of action taken on March 14, 1991. Inspector Cessford was turned to by the investigating detectives for advice and direction. It was Inspector Cessford who then set the tone and course of the following interviews. By his own admission, Inspector Cessford was intent on resolving the investigation. That end was obviously the paramount objective, even if the means were hard-ball investigative tactics with children. - 33 - Inspector Cessford is no longer a member of the Edmonton Police Service and is accordingly not subject to discipline under the Regulations (356/90) (see Rous and Law Enforcement Review Board (No. 005-92)). The Board is accordingly unable to impose a disciplinary sanction for the found misconduct. In this connection, it is considered inappropriate to speculate what action the Board would consider appropriate were Inspector Cessford a current member of the Edmonton Police Service. Notwithstanding the inability to impose a sanction on a person no longer a police officer in Alberta, the Board does not consider itself without authority to report on the misconduct of a police officer who has left a service. In the present instance, the Board accordingly gave consideration to reporting the misconduct of Inspector Cessford to his current employer. That action, however, has been decided against, all circumstances considered. Although Inspector Cessford set the tone for the interviews, Detectives Bonetto and Findlay are found to have misconducted themselves in the threats used and interview tactics employed. It is also the case that both officers participated in the unlawful detention of D.G and M.G. With respect to penalty, the Board has considered the organizational context concerning training; the difficult circumstances that presented and: the influence of Inspector Cessford. It is also the case that both officers were intent on doing their jobs and not on causing harm or trauma to the children. All things considered, both officers are issued an OFFICIAL WARNING (s. 22(2) - Reg. 356/90). This decision will serve as that warning and the Chief of Police is DIRECTED to attach this decision (or a memo to the same effect) to the personnel files of Detectives Bonetto and Findlay. Costs The appellant has sought costs against the respondent police service for non-disclosure of documents during the course of this appeal. The conduct of the Police Service in this regard has been characterized as obstructionist, frivolous and vexatious. The Board, however, is unwilling to characterize the lack of disclosure occasioned in this matter in such a fashion. - 34 - It is correct to describe the conduct of the Edmonton Police Service in regard to disclosure on this appeal as resistant and unwilling. It needs to be remembered, however, that when this matter first arose on appeal, a disclosure practice was unknown and the Board had not issued a disclosure policy. Indeed, the response of the Edmonton Police Service to disclosure in this appeal prompted the Board to design a disclosure document that was issued in August, 1993, (see Rhodes and Law Enforcement Review Board (No. 026-93)). In this connection, the Board is satisfied that if fingers are pointed in the context of poor disclosure practices, the Board must identify its lack of policy, prior to 1993, as the determinative factor. It is also worth noting in this regard, that the anticipated *Freedom of Information and Protection of Privacy Act* (October, 1995) is expected to provide a comprehensive frame-work for disclosure of law enforcement information. All things considered, the application for costs is denied. Exhibits and Transcripts The Board has determined that it would be contrary to the best interests of the Children concerned to permit any disclosure or publication of the record or exhibits filed in this matter. Prior to the conclusion of this appeal, requests were received for copies of portions of the record and exhibits. Those requests were denied. It is accordingly an ORDER of this Board that all Board records and exhibits in this matter be sealed indefinitely. LEGAL BURDEN The burden on the appellant, is to establish the allegations of complaint by a preponderance of evidence, or by a fair and reasonable preponderance of credible testimony (see *Re Camgoz et al*. (1989), 74 Sask. R. 73 (Sask, C.A.); *Sheehan v Edmonton* (1990), 103 A.R. 78 (Alta C.A.)). In considering all of the evidence given at the appeal, including that which has been previously outlined, the Board is satisfied that Ms. McCoy has met the burden of proof which falls to the appellant. - 35 - CONCLUSION The Board is satisfied for the reasons previously stated that the decision of the Chief of Police cannot be affirmed. THE APPEAL IS ALLOWED AS PROVIDED FOR IN THE JUDGMENT. REFERENCES ARE MADE TO THE EDMONTON POLICE COMMISSION. (signed) ---------------- P.J. Knoll, Q.C. Chairman DATED at the City of Calgary in the Province of Alberta, this _24th_ day of _July_, 1995. c. K. Galloway, Board Counsel S. Renouf, Counsel for the Appellant P. Royal, Q.C. Counsel for the Officers M. Logar Counsel for the Respondent
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Martin Hunt / martinh@islandnet.com / Sept 27 1997