Missing Persons - Police Process Recommendations

DRAFT Missing Persons - Police Process Recommendations
Based on Real Life Experiences from Families with Missing Loved Ones
Preparedby:MaureenTrask On: May 22, 2019 Page 1 of 7
Purpose
This report has been prepared for two specific purposes:
1. To inform the Independent Civilian Review of Missing Persons, Toronto.
2. To inform a national Missing Persons Framework across Canada.
My gratitude goes out to the families who have kindly taken time to share their input and
experience that shapes these recommendations. My hope is that this will result in real positive
action, real change to help find missing persons.
Families who had or still have a missing loved one want a voice in shaping the necessary
changes in the missing person process. Their lived experience in dealing with the system and
Police dealings is challenging. Navigating what little standard system is in place, along with
minimal guidance and information for families, is a definite gap and hinderance. Without
families knowing what is expected of them and without a common understanding of their role
versus Police, we are instituting an unhealthy environment where frustration and even anger
develops, resulting in negative experiences and fractured relationships.
Background
I’m an advocate for Families with Missing Loved Ones with lived experience. After 3 ½ years,
partial remains of my son Daniel were found, thanks to the Michigan Backcountry SAR Team.
My uncertainty (Ambiguous Loss, Dr. Pauline Boss) is over but, so many other families are
living without answers. Many go through decades of uncertainty and even die never knowing
what happened to their missing loved one.
Through my experience I was shocked to learn that there are limited supports for families and
no national framework/policy for Missing Persons or standard Police processes. This leaves
even more uncertainty in the public as to how missing person cases are handled and how big a
social issue it presents in our communities. Since statistics are not held nationally, it’s difficult to
know if we are doing better, worse or staying the same when it comes to the frequency of
Missing Persons over time. Without a benchmark, it’s difficult to effectively measure. Although
there is research being done in countries who have now implemented a Missing Persons
Framework, very little is occurring in Canada.
To honour Daniel’s memory and in support of the families, I actively champion for needed
changes when it comes to Missing Persons. Efforts to secure meaningful legislation includes: a
Missing Persons Act in Ontario, a Missing Persons Day in Canada, a Silver Alert Strategy in
Canada, a standard Missing Persons Police Process, and a Missing Persons Policy/Framework
across Canada. Efforts to raise public awareness and build capacity for family supports are
also key priorities.
Recommendations
With no standard Police process for handling Missing Person cases, I have taken on the task of
gathering input from families who also have firsthand lived experience in challenges and
uncertainty. This information has been reviewed and consolidated, resulting in specific
recommendations. These recommendations are anticipated to make improvements for families
who are still on this journey or those who may have a missing loved one in the future. Without
transparent and consistent process, there is no trust or reliability in the system.

In requesting input, families were asked to consider four specific missing persons subject areas:
1. Reporting, 2. Investigations, 3. Searches, and 4. Communications. Additional areas were
identified for 5. Training, and 6. Media. Following are the consolidated results from the input.
1. Missing Persons Reporting.
1.1. Take the Report. When someone reports a missing person, a report must be taken
immediately by Police. There is no waiting period, this is a myth. The process must
ensure that a report is taken. Families must be believed and not turned away or told to
report it to another jurisdiction. This is very frustrating and confusing for families. It’s a
simple process that needs to be followed consistently.
1.2. Centralize all Missing Persons Cases. In Jan. 2013 the RCMP launched a new
public website for missing persons and unidentified remains. However, the files posted
online represent only a “sampling” of all the cases out there. It is not evident how many
persons are missing since it’s not a complete compilation and no national authority is
responsible for providing this number. To ensure fairness and consistency for all
families that report their missing loved ones, are file should be posted on the Canada's
Missing Public Website within a specified timeframe. If not, there must be mutual
agreement between the family and Police, documenting the reason it was decided to
not put it on. There is already uncertainty in the public about how many people are
actually missing in Canada, representing an unrealistic low number. A centralized
process would help to eliminate much of that uncertainty. Of course, national
accountability for this and a standard procedure would need to be established.
1.3. Provide Missing Statistics. With the new NCMPUR Operations in place through the
RCMP, there is now an Annual Factsheet (2018) giving a national breakdown of
missing persons reports by province, age (child or adult), sex, and probable cause.
This is a good start and standardization of input continues to evolve. It’s important to
note that the fact sheet does not provide actual number of missing persons, but instead
relies on missing person transaction counts from the CPIC System using an algorithm
to remove duplicates (repeat runaways, jurisdiction changes). The MMIW reviews have
brought to light the discrepancy in number of their missing loved ones on multiple
occasions. So, it’s important that Missing Person cases are reported to the Police, even
though some families feel intimidated or mistrust Police and don’t trust the process.
There is no time limit as to when a case must be reported.
2. Missing Persons Investigations.
2.1. Take the Family Seriously. Families need to know they are taken seriously and not
being brushed off. Police Training is critical as is rules of conduct based on professional
standards. Police must ensure no biases, stereotyping or systemic racism come into the
investigation process, not making assumptions or jumping to conclusions without proper
investigation. Further, families need to be believed first and proven otherwise if
necessary. See more information under Training below.
2.2. Deliver Equivalent Services. Missing children cases are taken seriously and
investigated in a timely manner. The process for handling missing children, including
the Amber Alert is well established and understood. There are also national agencies
offering support services for families with missing children. However, when it comes to
missing adults there is still the archaic conclusion that the missing person is an adult
and has the right to choose to go missing. In the case of missing adults, there is no

national support agencies for families. If the family feels the disappearance is out of
character for their missing loved one, then an investigation must always be conducted
to prove, one way or the other. To make a conclusion without an investigation, it is not
appropriate or just for any missing person case.
2.3. Answer Calls. When calls are made to the investigating officer, but not returned,
families feel ignored and abandoned. Either Police should have timely call back or a
one number where there will be a real live person to talk with.
2.4. Record all Interactions. Accurate record taking is imperative to ensure a proper trail.
Often families who have long term cases, are dealing with changing investigative
officers over time with missing information on file. This is frustrating to families, even
retraumatizing to have to learn that information and/or evidence is lost or missing. All
conversations with families should be recorded in the file. Technology is helping, but,
case file details are often not shared across jurisdictions.
2.5. Follow-up on Leads. Leads can come into Police directly, through their investigation,
from Crime Stoppers or from the public. All leads need to be taken seriously,
particularly if from friends or families close to or last seen with the missing person.
Each piece of new information could be a new lead. In the case of families, many felt
dismissed, being put off or ignored by police. If it’s a caseload issue, this needs to be
addressed head on. Families should be made aware that they should not try to be their
own investigator, especially when given information from an unknown person through
social media. Again, families should pass on any information they have and let the
police do their investigative work.
2.6. Explain Appeals and Rewards. Sometimes appeals and rewards are made to the
public by Police to acquire new leads. It’s important that these options are discussed
with the families so that they understand how and why these tools for Police are used.
Families often feel that there is inconsistency and unfair use without consistent
utilization. To remove misunderstanding or mistrust, this needs to be explained so
families are given the opportunity to ask questions and understand.
2.7. Proclaim a Missing Persons Act. This act (Schedule 7) was given Royal Assent by
Parliament on Mar. 8, 2018 and is awaiting final Regulations and in force proclamation.
This legislation means that every missing person’s case can be investigated by getting
access to personal information or locations to help investigations, where there is no
evidence of crime. This will ensure fair and consistent practices are followed for all
missing persons cases at the beginning of the investigation when time is critical. This
tool is what Police have been asking for but, must also be staffed and utilized to be
effective in helping to finding missing persons.
3. Missing Persons Searches.
3.1. Responsibility for Searching. Families expect their Police to execute searches to find
their missing loved ones where locations or sightings are known. The lines blur when
families feel they are on their own, since no searching is being done by Police. This
builds a wall if not discussed up front so responsibilities are clear. Families need to
know the options available to them (ground, water, air) and SAR teams available that
Police may call upon to assist. Typically, SAR Teams are only involved through
requests from Police.

3.2. Share Search Decisions. Families need to understand how Police determine if a
search is conducted or not. At a minimum, the decision to search or not needs to be
shared and understood by the family. If not, this creates a situation where families feel
they are left in the dark and must take action to do it themselves. This can lead to other
issues, including compromising the investigation or potentially resulting in injuries or
additional people going missing from the search.
3.3. Coordinate Searches. Part of the searching responsibility is coordinating search
logistics and execution. Where there are no active searches underway by Police, then
they should work with families who may want to bring in their own resources. An
example is where specialized SAR teams may be available in other jurisdictions, even
other countries with specialized skills or technology. I can speak firsthand of this,
working with the OPP and a specialized backcountry boots on the ground SAR team
from Michigan (MibSAR). Though we were treading on new territory in search
relationships with Police, we were able to work together to get searches coordinated
and documented through the coordinator. This was a more positive experience by
working in partnership with Police.
4. Missing Persons Communications.
4.1. Establish Communications. It’s important for families to have an agreed upon
communications schedule with Police, even if it’s just to hear that there are no changes
or new leads (what have they done, what do they plan to do next). Police need to be
the initiator at an agreed upon frequency. Families want to know their loved one isn’t
forgotten. This is also important when the investigative officer changes due to staff or
jurisdiction changes. This is now a mandatory requirement for the RCMP but, hasn’t
been expanded to other jurisdictions even though recommended as a best practise for
all.
4.2. Build Positive Relations. An environment of positive relations needs to be in play to
encourage and help maintain an open and collaborative relationship between families
and Police. Families are impacted not only with the experience of living with a missing
loved one (Ambiguous Loss, Dr. Pauline Boss), but also by an experience of
indifference and bias on the part of some Police. This is like any other relationship, if it
doesn’t start off positive, if it doesn’t address assumptions and concerns, the
relationship will be strained.
4.3. Earn Trust. An issue of lack of trust with Police was indicated by the majority of the
families who provided input. In the case of indigenous families there is evident mistrust.
Without open and regular communications, this is no surprise. In fact, I’ll go as far to
say that without open communications between families and Police, there will be no
opportunity to earn trust. Without 4.1 and 4.2 being addressed, there will be no trust.
4.4. Engage Community. Businesses, organizations and community workers want to help
when someone goes missing. Brampton Communication Protocol - Missing Persons ,
June 28, 2018 was developed between City and Police. It alerts employees when
someone is missing. This means there are more people aware of the missing person
with the goal that they may be found sooner. This could be a provincial and/or national
program to help find the missing in a supportive community manner.

5. Missing Persons Media.
5.1 Ensure Equal Opportunity. All families should be given equal opportunity for media
releases. Currently, Police decide if they will send out a media release, without
consulting with the family. Many families feel their case is not given the media attention
it needs. The family needs to be involved in the decisions about media attention.
Often, families must ensure their own media coverage, again at a very difficult and
emotional time for them. Media will often reach out to families only if the case is news
worthy, which again is a bias towards families. There needs to be a consistent process
giving equal opportunity to all families, hence more working together.
5.2 Establish Missing Persons Media Guidelines. Media reporters and journalists need
to put themselves in the shoes of families, understand the emotional journey
(Ambiguous Loss, Dr. Pauline Boss) before putting just "sensationalism" in the press.
They absolutely need ethical guidelines to remove harm to the families.
5.3 Eliminate the Word “Closure”. Media, police, public and even families often use the
word "closure" when conveying what is needed. Research is now showing that Closure
is a Myth even in the event of death. Families need answers, physical evidence and
resolution and are learning that there will never be “closure”.
5.4 Respect Family Privacy. Media attention is a double edge sword. Although the news
is out there, social media has made it a target for some families in a negative way. The
web sleuths, psychics, the ill informed, and in some case extortionists hound and prey
on families, disrespecting their privacy and causing much noise and heartache.
Families need an easy way of getting information out without bringing on negative
results. If there was a family media liaison role to assist, this would be helpful.
6. Missing Persons Training.
6.1. Establish an Objective Process. Many families said they felt unheard and dismissive
by Police. Police Training for handling missing person cases is critical as is their ethics
and conduct throughout the process. Police must learn to leave biases and
stereotyping out of the process, not making racial biases, assumptions or jumping to
their own conclusions without proper investigation undertaken.
6.2. Training for Police. Currently, there is minimal training regarding Missing Persons as
part of the Ontario Police College curriculum. This needs to change if we are to ensure
Police are equipped with the necessary skills to perform missing persons functions.
With limited resources, most Police jurisdictions do not have a dedicated Missing
Persons Unit; even large ones as Toronto, did not have a unit prior to June 2018.
6.3. Training for Families. Conversely, families need training/awareness about the
process and their role. Ideally, they would be given an Information Kit explaining the
process, their role, the role of Police and where they can get emotional support and/or
services.
6.4. Training for Others. It should be noted that training is not restricted to Police. Others
that need to understand their role are the judiciary, coroners, Police Service Boards,
agencies (Victim Services, Counselling and Support services) and legislative
representatives to name the obvious. To address missing as a social issue, all
stakeholders need to be engaged (Police, Education, Social Services, Attorney
General, Finance, Homelessness, Health).

6.5. Leverage Resources. It makes sense that communities with greater population and
higher number of missing incidents will benefit from a dedicated, well trained Missing
Persons Unit. For those that have a lower number of incidents, there should be a
Centre of excellence or designated larger forces to can be called upon (fee for service)
to consult with and get resource assistance in a more cost-efficient manner.
In closing, the following information is included for background and reference purposes.
Excerpt from Families living with absence: Searching for missing people, Hester Parr and
Olivia Stevenson (Geographies of the Missing), ESRC, University of Glasgow, 2013
Learning Points
 Good practice examples of partnership working in missing investigations should be
shared via police education and training.
 It should be recognised that regular communication and updates via the use of single
points of contact or Family Liaison Officers (FLOs) constitute best practice in missing
person enquiries.
 Police officers should agree regular call times for news sharing with families, and in
long-term cases, they should call every few months for updates and information
sharing.
 Working in partnership with families can produce benefit and value added to police
investigations and working with families should be more than ‘managing
expectations’.
 The Missing People charity should continue to provide a range of advice literature for
families about emotional and practical support services but, increase provision about
planning for return/reconnection and memory work.
Recommendations
 Consultation with families of missing people should be at the heart of service
development and planning in relation to missing issues and guidance.
 The police have a role in reducing experiences of trauma in missing situations by
promoting family partnership work and new guidance could take account of this role.
 Police and family investigation strategies should be managed in relation to one
another and not just in parallel.
 Police officers should plan for medium and long-term missing investigations to involve
a sharing of search tasks with families as part of active partnership work.
 Provision of empathetic and clear communication and liaison pathways between the
police and families of missing people is a key area in need of standardisation and
improvement in the UK.

 Families in medium and long-term cases should be notified when officers change on
the case and should be introduced to new officers in a professional hand-over.
 The appointment of local force ‘champions’ for long-term cases of missing people can
act in the interest of the family and promote local investment in case resolution.
 The Association of Chief Police Officers (ACPO), the UK Missing Person Bureau, and
Police Scotland should encourage police forces to inform the family members of
missing people about the range of support services available to them as standard.
 Police officers could be required to carry an ‘aide memoire’ of best practice in missing
person cases, and the above agencies should evaluate this option.
 The Missing People charity could increase awareness of its services by campaigning
for police use of an ‘aide memoire’ that requires all officers to pass on the details of
the charity in each missing persons case.
 The Missing People charity could invest in on-going research relationships that
explore further the memory practices and experiences of living with missing loss,
amongst families of missing people.
Reference Materials
Report a Missing Person/Unidentified Remains Canada Gov.,NCMPUR, Aug. 2014
RCMP Revamp National Missing Persons Policy in Wake of Report, Global News, Oct. 10, 2014
National Missing Persons DNA Program, Canada Gov., NCMPUR, Mar. 2018
Obstruction of Justice: The Search for Truth on Canada’s Highway of Tears Ray Michalko,
Red Deer Press, Markham ON, July 14, 2016
Reviewed by Bonnie Reilly Schmidt, Sept. 17, 2018
Missing Persons Investigations Course Catalogue Canadian Police Knowledge Network (CPKN)
Centre for the Study of Missing Persons UK University of Portsmouth
Missing Person Investigation UK College of Policing, Authorised Professional Practice (APP),
Nov. 22, 2016
Evidence Based Approach to Missing Persons Investigation Ljiljana M-T, Ksenija B.
Journal of Forensic Sciences & Criminal Investigation, Oct. 12, 2017; 5(5): 555673.
DOI: 10.19080/JFSCI.2017.05.555673
Missing Children and Adults Strategy UK Gov. Home Office, Dec. 1, 2011
National Missing Persons Framework Scotland Gov. Justice Directorate, May 10, 2017
Australia Missing Persons Australian Federal Police, The Investigation Process, 2017

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