Are there black holes? I've indicated that clearly there are. They only show up when you have an issue and you have to look and you can't get access. That's a black hole. The CBSA one is clearly an example. I said the integration isn't just federal--it's federal-provincial-municipal, so it's a very big issue. To talk to the other one, we in fact do. I can make a chair-initiated complaint, which I sometimes do. When I look at that, I look beyond merely the conduct of the officer. You look at the policy, procedures, and so on. A police officer is trained to do something. You take the law, and the officer is trained to adhere to the law. So you have policies, procedures, and training. The officer, in good faith, may be doing exactly what he was told to do. The problem lies not with his conduct. It lies with the policy and training, and that's why you have to go back and do it.
If you look at tasers, as an example--and you can choose any subject matter you want--I had a case dealing with an aboriginal woman who was tasered five times, including at the station. She was handcuffed. It was unjustified. Did I get a reaction from the RCMP to change its policy? No. The minister asked me to look at their taser files, because I had filed my complaint on Dziekanski. They had abysmal files regarding their use of tasers across the force. I looked at that and used statistical analysis dealing with...and going well beyond the complaint to look at what they were doing, how their policy would change. The policies changed, without factual justification, over a period of years, to having use that was inappropriate. We made strong recommendations that caused the RCMP to go back and change their policies and procedures and training.
I could have 1,000 people tasered and nothing would happen, but because I looked at that statistical base and could see what happened and point to it, I could offer them constructive advice: here's the size of the problem; here's what's happening; here's what I think you should do.
If you just look at complaints, you're going to get the squeaky wheel, squeaky wheel, squeaky wheel. So yes, in fact you have to do it. These things aren't adversarial or different.
As far as the models go, you could go across the world. There are very aggressive models out there in terms of policing and all their activities. They're very aggressive. Anyone who's gone to Northern Ireland would have a sense of what's happening there.
So yes, you need to have more than just a complaint. Otherwise, the poor officer is sitting there without any benefit. Our philosophy is to maintain and restore the public's confidence in the RCMP. You do that by finding out where the problem is and helping them identify the problem. You help the member so that the member is not hung out to dry and so that you don't have the same problems over and over.