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December 3, 2006</p> </div>  <div class="tools tools_top"> <div class="hr"><hr/></div> <table> <tr> <td class="print"><a onmouseover="document.getElementById('printlink').style.textDecoration='underline';" onmouseout="document.getElementById('printlink').style.textDecoration='none';" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=printable"><img src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/graphics/article/tools/print.gif" alt=""/></a><a id="printlink" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=printable" onmouseover="this.style.textDecoration='underline';" onmouseout="this.style.textDecoration='none';">Print</a></td> <td class="email"><a 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told it, the white Mustang sped straight at him, tires squealing. </div></div> <div class="clear"></div> <div id="articlebox"> <div class="hr"><hr/></div>   <div class="sfg_art001"> <h2>Images</h2> <a href="/web/20090207131522/http://www.sfgate.com/cgi-bin/object/article?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&o=0" target=""><img class="thumb" src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/c/pictures/2006/11/26_t/ba_detoy036la_t.gif" alt="Diane Detoy holds a photo of her daughter Sheila, who die..."/></a><a href="/web/20090207131522/http://www.sfgate.com/cgi-bin/object/article?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&o=1" target=""><img class="thumb" src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/c/pictures/2006/11/26_t/ba_2535336_t.gif" alt="Sheila Detoy, 17, a coffee shop waitress, was a passenger..."/></a><a href="/web/20090207131522/http://www.sfgate.com/cgi-bin/object/article?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&o=2" target=""><img class="last-thumb" src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/c/pictures/2006/11/26_t/ba_3145801_t.gif" alt="Gregory Breslin, then 33, an officer with a record of mis..."/></a> <a class="view" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/object/article?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&o=" target=""><img class="plus" src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/graphics/utils/plus-green.gif" alt=""/> View More Images</a> </div> <div class="hr"><hr/></div> <style type="text/css" title="SFGate"> /* <![CDATA[ */ #useofforce { border-left: 3px solid #a07f45; border-right: 3px solid #a07f45; padding: 0 5px 3px 5px; font-family: verdana,sans-serif; font-size: .7em; } #useofforce p { margin: 0 0 5px 2px; padding: 0; } /* ]]> */ </style> <div id="useofforce"> <p><a href="/web/20090207131522/http://www.sfgate.com/useofforce/"><img 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block the car's path. He had no choice, he said, but to shoot in self-defense. <p>He missed the driver, but one of his bullets killed a 17-year-old passenger, Sheila Detoy. <p><em>Interactive graphic: <a href="/web/20090207131522/http://www.sfgate.com/useofforce/interactives/detoy">The accidental shooting of Sheila Detoy</a></em> <p>The Police Department, acting under what were then newly adopted rules meant to ensure immediate and complete investigations of officer-involved shootings, concluded that Breslin's shots were justified because his life was in danger. Based largely on that inquiry, the district attorney found the May 13, 1998, shooting violated no law. <p>But the city later paid the Detoy family $505,000 to settle a wrongful-death lawsuit rather than risk going to trial on allegations that the shooting was improper. No police chief ever sent the Police Commission a required report on the incident, according to commission records. <p>At the Police Commission's insistence, the department reluctantly brought administrative charges against Breslin and Officer Michael Moran, for allegedly shooting without justification. The department also charged them and two other officers, James Zerga and Peter Siragusa, with misrepresenting the truth about the incident. The officers have denied the charges, which are pending. <p>The Detoy case is one of four shootings involving deaths or serious injuries that The Chronicle examined in depth after the city, while denying liability, paid large settlements to survivors' families. Their lawsuits required the department to release records about its investigations that are normally not public. <p>The Chronicle found a pattern in the four shootings: <p>-- In the moments leading to the shootings, officers used faulty tactics, needlessly placing themselves in danger, then shot their way out. <p>-- The department's internal investigations resulted in reports that did not mention the missteps. <p>-- The public did not receive a full account, and police officials may have lost opportunities to discipline or retrain officers and to improve operations to help prevent more shootings. <p>The Police Commission has never heard administrative charges that an officer shot a civilian without justification. Now, Breslin and the other officers are trying to block their charges on the ground they were filed too late. The state Court of Appeal is scheduled to hear arguments in the case on Tuesday. <p>Peter Keane, a commissioner until he resigned last year, said he believed "the police command just tried to cover it up. That's one of the worst in the history of this town, the cover-up and the injustice of the killing of this innocent young girl." <p>Chief Heather Fong declined to comment on the case. "I think that it is inappropriate to discuss cases that have been investigated," said Fong, who noted the shooting and the investigations of it occurred before she became chief in 2004. <p>Fong said she has taken many steps to improve training and policy to ensure that officers "have the best preparation." <p>"The goal is that we all do our jobs without that use of force," Fong said. "However, there are situations, we know that there are a lot of people with guns out there, there are a lot of dangers that confront officers on a daily basis." <p>The officers involved in the Detoy shooting, each of whom was later promoted, would not discuss the case. Siragusa, who recently retired, said in an interview in November that he believed the officers would be vindicated in what was "a tragedy for everybody." <p>Breslin, in declining to comment, said, "Do you think I'm happy about the way this turned out? It's unfortunate beyond what my words can express." <p>Last year, the Police Department again revised its rules in another attempt to ensure timely and complete investigations of police shootings. As the department applies those rules to more recent shootings, six of which have occurred this year, the story of Detoy's death and its aftermath shows why change is needed. <p>The vast majority of police work does not involve the use of force, experts say, and police shootings are rare. <p>Though 99 percent of police work is routine, there is always a chance something unexpected will happen -- a driver will roar off instead of stopping, a suspect will suddenly charge with a knife. Officers may suddenly find themselves facing life or death. <p>"It's just an absolute adrenaline dump," said Geoffrey Alpert, a professor of criminology at the University of South Carolina who has studied how and why officers use force. "Their heart rate goes up. Their blood pressure goes up. The adrenaline kicks in." <p>Officers may become myopic, their vision focused on the perceived threat -- say, the barrel of a suspect's gun -- to the exclusion of everything else, said Alpert, who has consulted with the Justice Department. They may experience "auditory lockout," losing much of their hearing, he said. <p>Under intense stress, they must correctly interpret the suspect's actions and make the right move. <p>In that fleeting frame of time, they may also face conflicting urges to do no harm and to stay alive, Alpert said. In literally the space between seconds, they will have no time to methodically analyze their options. They will react based on instinct and training. <p>"Police shootings take place, many of them, in split seconds," said Alpert, who has interviewed many officers involved in shootings. <p>That's why Alpert and other police practices experts analyze officer-involved shootings not as an isolated "frame," but as the last in a sequence of frames. <p>From this perspective, every shooting incident actually begins seconds or minutes before the trigger is pulled, maybe even before the officers make contact with the suspect. <p>"How you approach the situation, the decisions you make, the position you take, whether you take cover -- those are frames leading up to the final frame," Alpert said. <p>That is why mandatory training for all police in California stresses appropriate tactics and puts officers in simulated situations, and why police practices experts say proper supervision is critical. <p>In the case of Gregory Breslin, San Francisco police supervisors had warnings about his use of force long before his bullet killed Sheila Detoy. <p>Breslin, then 33, had been in the department almost nine years and had received several commendations. "Officer Breslin is very street wise and he never gets into situations that are over his head," a supervisor wrote eight months before the shooting. <p>Yet the ex-Marine had been in trouble, according to police records -- for using questionable tactics, for brutality and for misrepresenting the truth. <p>In 1991, while assigned to a task force formed to suppress crime in the Tenderloin district, Breslin was injured three times in altercations with suspects. <p>His supervisor at the time wrote that his "possible use of improper tactics may have lead (sic) to the injuries being suffered" and ordered him to get more training. Two superiors counseled Breslin about his arrest tactics, police records say, and he attended a three-hour class on "high-risk performance." <p>That fall, Breslin beat and kicked a man he had arrested for public intoxication, according to Police Commission findings. When the jail refused to take the bloodied suspect, the findings say, Breslin left him on a Tenderloin street corner late at night. <p>Questioned by internal affairs, Breslin denied beating the man. In May 1992, the Police Commission suspended him for 20 days for using unnecessary force and failing to answer truthfully and without evasion. <p>Two years later, he was charged with using unnecessary force, for allegedly punching a prostitute who was handcuffed to a bench in the Hall of Justice. During a hearing in that case, a lawyer for the Police Department accused Breslin of having lied about the incident. Breslin denied misconduct. <p>The unnecessary force charge could have led to Breslin's dismissal. But the chief at the time, Fred Lau, asked the Police Commission to withdraw it. <p>Lau then suspended Breslin for two days for the lesser offense of "unofficer-like conduct" and ruled he would not have to serve the suspension unless he was involved in other misconduct within a year. The discipline would not count when Breslin came up for promotion, he said. <p>Lau would not comment on the case or on Breslin, saying it was a personnel matter. <p>By early 1998, Breslin was assigned to the department's narcotics unit, working in plain clothes to arrest street-level drug dealers. <p>Granting that assignment to an officer with Breslin's record of excessive force was a formula for trouble, said Samuel Walker, an expert on police accountability who reviewed evidence from the Detoy case for The Chronicle. <p>Confronting suspects who may be armed and dangerous requires good judgment about tactics and the use of force, said Walker, a professor emeritus of criminal justice at the University of Nebraska at Omaha, who has consulted for the Justice Department. <p>Putting Breslin in such a post exposed both the officer and the public to unnecessary risk, he said, and sent a message that the department was willing to tolerate, even reward, misconduct. <p>Breslin would later testify that he received more than 20 complaints from citizens or other officers that he used unnecessary or excessive force, but that he could recall no supervisor counseling him about the complaints. He said he always told the truth during police inquiries into his conduct. <p>Walker said, "The real issue is not the one bad officer with 20 complaints, but the failure at the top." <p>A drug investigation <p>In the spring of 1998, Breslin began investigating an alleged drug dealer, Raymondo Cox. <p>Cox, 21, had been released on parole after serving time for armed robbery. That March, when police in South San Francisco tried to arrest him during a drug deal, he eluded them in a high-speed car chase. <p>Several weeks later, Breslin passed the case to a joint FBI-SFPD fugitive task force. The task force soon received a tip that Cox was at a house in the Sunset District. It was the home of Diane Detoy, a single mother who worked as a bartender and bookkeeper, and her daughters, Christine and Sheila. <p>Sheila was the younger girl. She attended Holy Name Elementary School and then St. Ignatius College Preparatory School. She found some students there "a little bit snooty, upper crusty" and switched to Immaculate Conception Academy, her mother said. <p>She was a Girl Scout, and she sometimes took herself to Sunday Mass. <p>But she got into trouble, too. She was strong-willed like her mom, and as she got older, her mother would later testify, they fought over things like "her not calling me back or not doing what she was supposed to, coming home too late, just the basic, 'Where do you think you're going in that outfit? I don't think so.' " <p>Diane Detoy detested the rap music her daughter played and reprimanded her for smoking marijuana. Sheila also used cocaine, an autopsy would find. <p>She earned good grades but left Immaculate Conception in 1997, her senior year, over her mother's objections. <p>She got a general equivalency diploma and enrolled in Santa Rosa Junior College, but she quit when her car broke down. She took a part-time job at the Java Beach Cafe, across the Great Highway from Ocean Beach. <p>On May 11, 1998, Cox and a friend, Michael Negron, 22, visited Sheila Detoy at her home, to help her buy a white Mustang from an acquaintance, Diane Detoy said. It was the first time her mother met them. <p>"They seemed like nice guys to me," the mother would later say. <p>Two days later, at about 9:15 a.m., Diane Detoy kissed a still-sleepy Sheila goodbye and left for work. Within the hour, two unmarked minivans pulled up near the house. Officer Michael Moran, Inspectors Jim Zerga and Peter Siragusa, and FBI agent Gary Rayburn began a stakeout for Cox. <p>Moran phoned Breslin and asked if he wanted to join them. Moran did that, he later testified, because Breslin, a friend, had referred the case to the task force and might have information that would help with Cox's arrest. <p>Breslin quickly joined them. They didn't see Cox, but a neighbor said he'd seen him in a white Mustang parked nearby. <p>Checking police computers, they learned the car was registered to Matt Williams, who lived nearby at the Oakwood Apartments complex at 595 John Muir Drive. <p>Zerga, Siragusa and Rayburn drove in one van to the complex, where the manager told them Cox had been at Williams' apartment. The officers radioed Moran to watch the Oakwood's driveway, and he parked his van in a lot across the street. <p>Shortly before noon, Breslin, sitting beside Moran, saw a white Mustang pull up the sloping driveway. Moran radioed the others. "I said that there was a white female driving," he later testified. <p>Breslin would testify, "I never heard him say that." <p>A driveway confrontation <p>The Mustang parked at the top of the driveway. Inspector Zerga, hidden behind the door of a nearby garage, learned from the manager that a man was in the driver's seat and a woman was in the front passenger seat. <p>Suddenly, Cox emerged from the apartment building, walked to the Mustang, and got in the back seat. As the car started down the driveway, Zerga radioed Breslin and Moran to block it. <p>Moran pulled his van into the bottom of the driveway. The Mustang stopped in front of it. <p>Breslin got out, walked toward the Mustang and aimed his gun at the driver, Michael Negron. <p>"I was standing in front of the Mustang," Breslin said later. "Directly in front of the Mustang." <p>Moran got out, stood beside the van, and aimed his gun at the car. <p>Both officers wore jeans and sweatshirts, but they would later say they identified themselves as police and ordered Negron to turn off the engine. <p>Negron instead put the Mustang in reverse and rapidly backed up toward Zerga, who had left the garage and was near the top of the driveway, the officers said. <p>Then, Breslin testified, Negron raced down the driveway at more than 30 mph, tires squealing. Breslin ran for safety toward the retaining wall of a grassy island to his right. As he ran, he fired a shot at the front of the car, Breslin said, and fired twice more as the Mustang passed without hitting him. <p>"They tried to run me down with a car," Breslin testified. "I feared for my life, and the car was trying to kill me, and I fired in defense of my life. At the driver of the car." <p>Moran, who was on the other side of the van, would later testify that he did not see what happened. But he heard the shots. <p>Fearing that the driver had tried to run over Breslin or that someone in the car had shot him, Moran ran around the front of the van and fired once at the back of the Mustang as it raced away. <p>Breslin would later testify he did not see Detoy in the front passenger seat. <p>Siragusa, who was near the manager's office about 100 yards away, ran toward the driveway. About 11:54 a.m., he radioed that there had been a shooting. <p>Then he climbed into Breslin's and Moran's van and the three officers drove to the Detoy house to look for the Mustang. <p>"We drove around a couple blocks in circles because Mike Moran and Greg were upset," Siragusa would testify. "They were just involved in a shooting. And I remember telling them, 'We need to calm down. Let's take it slow.' " <p>They heard a broadcast that a Mustang had crashed on Sloat Boulevard near 34th Avenue. In the car was a dead girl. <p>When they got there, Siragusa told Breslin and Moran to stay in the van. "I wanted them to not see what had happened," he testified. <p>Negron and Cox had abandoned the Mustang, hijacked a Toyota Camry and fled, according to police, leaving Detoy's body behind. <p>In the van, Breslin said he thought Cox and Negron had stolen the Toyota from Detoy and killed her, Moran later testified. But Moran was sure Breslin had killed her. <p>"I didn't know how else to break it to him," he testified, "but I told him, I said, 'No, Greg, you are the one who shot the girl. She was shot by you.' " <p>Breslin didn't seem to comprehend, so Moran told him again. <p>"And then he -- he reacted -- he was very distraught, and he started to say, 'Oh, my God! Oh, my God!' " <p>A missed lunch date <p>Diane Detoy was growing concerned. Her daughter had failed to meet her for lunch as promised. <p>"Sheila wasn't returning my pages," she later testified. "I was wondering where she was." <p>About 3:30 p.m., her older daughter, Christine, phoned and said someone from the Java Beach Cafe had called to say a police officer was asking about Sheila. <p>Detoy called the number the officer had left and was told Sheila had been in a car wreck. Soon a man from the county medical examiner's office came by the West Portal bar where she worked. <p>"We went into the back room, and he told me that he believed that my daughter was shot and killed," she said. <p>"He wanted me to maybe come down and identify her. And, you know, I just went to pieces." <p>The investigation begins <p>Department rules required the homicide unit to conduct an "immediate and complete" investigation to determine whether the officers broke the law by shooting. But the Detoy investigation was flawed from its first hours, said Walker, of the University of Nebraska at Omaha. <p>In most homicide investigations, inspectors try to separate witnesses so they do not confer before they are interviewed. That should be the policy when investigating police shootings, according to the International Association of Chiefs of Police. <p>But homicide inspectors didn't interview the four officers until after they had spent at least an hour at the Police Officers Association headquarters, talking with each other about what happened that day, Siragusa and Zerga testified. <p>Breslin and Moran, in their testimony, denied discussing what had happened with the others. <p>One inspector, Antonio Casillas, initially testified that he knew the officers were going to the Police Officers Association but didn't tell them not to discuss the case. <p>Later he testified, "I think I might have actually asked them not to talk about the case. Extensively among themselves." <p>Capt. John Hennessey, who headed the homicide unit until recently, did not oversee the Detoy investigation and declined to comment on it. <p>Last year, the department revised its rules on investigations of police shootings to require that, "absent exigent circumstances," the involved officers shall not discuss the incident with each other before they are interviewed. <p>"We're very careful now to make sure the officers are brought to a police facility and they're separated from one another," he said. <p>The inspectors were investigating whether Breslin and Moran broke the law when they fired at the Mustang. <p>But they also were building a murder case that held the driver, Michael Negron, responsible for the shooting. Evidence of police misconduct could potentially undermine their case against him. <p>Just six days after the shooting, Inspector Casillas relied on the accounts of Breslin and the other officers as evidence for a sworn declaration for Negron's arrest. <p>"Officer Breslin," Casillas wrote, "fearing for his life, drew his issued firearm and fired at the driver of the car in an attempt to stop his assault on the Officer." <p>Casillas' declaration suggests the inspectors assumed from the start that the officers acted properly, said Walker. <p>In an interview, Casillas said he saw no conflict between the two investigations. "The facts are the facts no matter what," he said. <p>The charge: murder <p>As the homicide unit continued its investigation of whether Breslin and Moran broke the law by firing their weapons at people in the Mustang, the two officers helped the homicide unit with the case against Negron. <p>The district attorney's office charged Negron with murdering Detoy on the ground that by driving at Breslin, he caused the officer to fire in self-defense. <p>The office also charged Negron with assault with a deadly weapon on Zerga, for allegedly backing the car at him; drug dealing; and hijacking a getaway car. <p>The final homicide report, dated Oct. 7, 1998, affirmed the officers' account. It said Moran fired once and Breslin three times. One of Breslin's bullets killed Detoy. <p>Relying largely on the report, District Attorney Terence Hallinan told the officers on Feb. 10, 1999, that he had concluded they had broken no laws. <p>Prosecutors at the time were asking a judge to order Negron to stand trial for Detoy's murder. But a few weeks later, they offered Negron a deal: in return for pleading guilty to involuntary manslaughter in the killing of Detoy, assault with a deadly weapon, carjacking and possession of cocaine for sale, he received a sentence that resulted in his being released after serving about 3 1/2 years. <p>Stuart Hanlon, Negron's attorney, said his client got a lenient deal because substantial evidence contradicted Breslin's claim of self-defense. The department, however, could cite the guilty plea as proof that Breslin was not responsible for Detoy's death. <p>A second version of events <p>Soon after Negron pleaded guilty, Detoy's family filed a lawsuit that accused Breslin of killing her without cause, in violation of her civil rights. <p>It said Detoy's death resulted from the department's failure to adequately train and discipline Breslin and other unnamed officers who had records of using excessive force. <p>The Detoys' lawyers, Ronald Wecht and Khaldoun Baghdadi, gathered information that contradicted the officers' account. <p>Negron had refused to talk to the police, but he answered some of the lawyers' questions under oath. Detoy, he said, was a friend who knew nothing of his background. On the morning of the shooting, she had driven to the Oakwood Apartments to get him and Cox at Matt Williams' home. She picked them up and asked Negron to drive. <p>As Negron drove down the driveway, he said, Breslin and Moran pulled up in the van, jumped out and pointed their guns at the car. Moran stood by the driver's side of the van. <p>Breslin, Negron said, did not stand directly in front of the Mustang, as the officer had testified, but ran to the side of the car by Negron's window. <p>Neither identified himself as a police officer, Negron said, describing their appearance as "raggedy." They started screaming to stop the car. He thought they were robbers, he said. <p>Negron slowly negotiated the narrow space between the van and the raised island on his left, he said, and drove past Breslin. <p>"He just -- he saw I was going to leave and just started shooting," Negron testified. <p>As he pulled out of the driveway, Negron saw that Detoy had been shot -- "she was limp, gone." <p>What witnesses said <p>The homicide report downplayed or did not include other evidence. <p>One witness, Lydia Armstrong, testified that from a friend's balcony she saw the Mustang stopped with Breslin at the driver's side, yelling. The car began to move forward slowly as if to leave the complex -- but not at Breslin, she said. The officer began firing, Armstrong said. <p>"I didn't see any reason why he was shooting," she said. <p>The homicide report's overall summary omitted Armstrong's statements that the car posed no threat. The report mentioned them on Page 17. <p>The FBI agent, Rayburn, testified that he heard no tires squealing before the shots. Breslin had said he fired only after the car roared toward him with tires screeching. <p>The inspectors had interviewed Rayburn, but their report did not include any statement from him and did not disclose that they had interviewed him. <p>The Police Department's crime scene investigators found no tire marks on the driveway. Though Breslin said he fired as the Mustang rushed at him, they found no bullet marks on the front of the car. <p>The homicide report did not mention the lack of skid marks and bullet marks. <p>Walker, the police practices expert, said the report should have addressed the contradictory information. Its omissions, he said, suggested it favored the officers. <p>Questioned by the lawyers, Inspector Casillas conceded the report's narrative of the shooting was based "pretty much" on the officers' statements. He also acknowledged it was a mistake not to list Rayburn as a witness. <p>Casillas said Armstrong's statement that she saw no reason for Breslin to shoot did not concern him. "Not a great deal, no," he testified, "because it is not unusual in my experience to have people give inconsistent statements." <p>Casillas said he saw no need to have questioned Breslin further to resolve discrepancies. <p>According to Walker, Casillas' decision not to do so is "a classic example of an inadequate investigation. Of course you pursue it to resolve it and find out what really happened." <p>Casillas testified that he tried to determine the bullet path by requesting a test of the Mustang's back window for gunshot residue -- only to have the department's lab inform him, "This windshield was not collected as evidence and therefore cannot be examined." <p>In an interview with The Chronicle, Casillas said the homicide inspectors' work was in no way "out of order." <p>"It was a good, or adequate, or thorough investigation," he said. <p>Chief Fong, while declining to comment on the case, said homicide reports should be thorough. <p>Hennessey, the former head of homicide, said all homicide investigations were comprehensive and fair. <p>He acknowledged that inspectors should question officers about discrepancies in their accounts and that reports should include information that contradicts the officers. <p>Basic procedures <p>Mandatory training for police officers -- required by the state Commission on Peace Officer Standards and Training -- says officers should use cover to protect against vehicles or bullets. <p>But when he stood in front of the Mustang at the bottom of the driveway, Breslin left himself exposed to a suspect he knew was dangerous. <p>At one point, Moran testified he did not take cover behind his front door; at another point, he testified he could not recall whether he did. <p>He said he was never taught not to stand in front of a car with a dangerous felon in it. "I never said to myself, 'This is not a good idea,' " he recalled. <p>Breslin testified that he briefly took cover behind his door but then stepped forward because "the occupants of the vehicle gave me no indication that there would be a problem." <p>That was a mistake, said Lou Reiter, an expert on police practices and a former deputy chief in Los Angeles who reviewed details of the case for The Chronicle. <p>"Walking out and standing there works in 'Dirty Harry,' but it sure doesn't work in real police work," he said. <p>"What he did was absolutely contrary to any reasonable training and -- more importantly -- precipitated his belief that there was some degree of threat." <p>The state's training warns against rushing into high-risk situations without a plan. But Zerga later testified, "We had no specific plan. There's no supervisor there. It wasn't one specific person giving the directives." <p>Attempting a potentially dangerous arrest without a plan heightened the danger, said Walker, the Nebraska expert. <p>In an interview, Fong said officers are trained to use appropriate tactics during dangerous traffic stops, not only to catch criminals but also for officer safety -- "in terms of at the end of their shift, being able to go home. Because officers put their lives on the line." <p>Greg Winters, a captain who was in charge of the risk management office and oversaw the internal affairs unit, told The Chronicle, "It's my recollection that there was a whole cascade of procedural and policy violations that may have contributed to the shooting." <p>The internal affairs investigation cast doubt on the officers' accounts, he said. <p>"I walked the ground, and I have unanswered questions to this day about the officers' story," said Winters, who left the department in 1999 and works as a lawyer. "Their description of events did not match the terrain." <p>The chief's office repeatedly delayed the investigation, Winters said, adding, "It just got back-burnered and back-burnered and back-burnered." <p>Winters said that Earl Sanders, who was then assistant chief, ordered that the report should reach no conclusions, a departure from routine procedure. <p>In an interview, Sanders, now retired, denied it. "That's a lie," he said, "and I don't care to discuss it any further." <p>Former Chief Lau declined to discuss the case but said it was handled properly. <p>On March 18, 2000, Breslin was promoted to sergeant, bringing protests from Detoy's family and police reform activists. <p>The president of the Police Commission at the time, Dennis Herrera, told them the panel had no authority to intervene because the promotion was based on a competitive civil service process. <p>'A reasonable jury' <p>On Aug. 30, U.S. District Judge Charles Breyer ruled that there was enough evidence for the family's suit to go to trial. <p>"A reasonable jury could find that Breslin was not merely reckless, but rather acted with an intent to injure unjustified by a legitimate government interest," he ruled. <p>"A reasonable jury could also find," he wrote, "that the SFPD's failure to train/supervise Breslin despite the many complaints of excessive force amounted to 'deliberate indifference' and was a cause of his alleged excessive force on May 13, 1998." <p>In September, the city, still denying liability, settled the lawsuit for $505,000, its third-largest settlement in a police shooting. <p>In March 2001, nearly three years after the shooting, the Office of Citizen Complaints completed its own inquiry and recommended disciplinary charges against all four San Francisco police officers. <p>Under department rules, it was up to the chief to decide whether to forward the charges to the Police Commission. <p>Lau refused. In an Aug. 30, 2001, letter to the Office of Citizen Complaints, he said the civilian witnesses gave statements that contradicted each other. <p>He also said Negron's guilty plea for manslaughter, admitting responsibility for Detoy's death, showed the shooting was justified. <p>"There is no clear and/or convincing evidence put forward that would undercut the statements of the officers," Lau said. <p>"I am sure you would agree," he added, "that this department has a demonstrated record of patience and restraint in the realm of resorting to the use of deadly force." <p>The Office of Citizen Complaints moved to file the charges directly with the commission, and Lau again opposed them. "This case is not one where the officers acted as rogues or deliberately flaunted procedure," he wrote on June 26, 2002. <p>But two days later, under orders from the commission, Lau signed the charges. In an interview, he declined to discuss the matter. <p>The officers have been suing to have the charges dismissed. <p>No report to the commission <p>The department was required to send the Police Commission a public summary of its investigations in the Detoy case. The commission uses the summaries to help identify tactics and policies that need improvement. <p>But more than eight years after Detoy's death, the commission has no summary on her case. <p>Reiter, the former Los Angeles deputy chief, said such delay undermines official accountability. <p>Walker, the expert at the University of Nebraska, agreed. "If you ignore the facts or whitewash them, then problems are not going to go away. Problems will happen again." <p>Lt. Douglas Groshong of the Police Department's Legal Division, replying to The Chronicle's request under the San Francisco Sunshine Ordinance for a copy of the summary, wrote that a summary had been prepared at the time but could not be found. <p>"The Police Commission has no records to indicate that the Police Commission received a copy of this document," Groshong wrote. <p>The week after Sheila Detoy's death, her memorial service filled Holy Name of Jesus Church at 39th Avenue and Lawton Street. <p>The Detoy family cremated her body and scattered some of her ashes over the ocean near Honolulu, where they vacationed together. The rest fill an urn on Diane Detoy's mantel. <hr/> The series <p>Today <p>Tactical errors by officers can turn routine enforcement operations into deadly situations. A case study: the shooting of 17-year-old Sheila Detoy. <p>Monday <p>A case study: A motorcycle officer's pursuit of a car with an expired registration ends in the fatal shooting of the driver. <p>Tuesday <p>Mentally ill people are a special challenge to officers. A case study: the shooting inside the Metreon of Idriss Stelley. <hr/> <p class="dtlcomment">E-mail Seth Rosenfeld at <a href="https://web.archive.org/web/20090207131522/mailto:srosenfeld@sfchronicle.com">srosenfeld@sfchronicle.com</a>.</p> <p id="pageno">This article appeared on page <strong>A - 1</strong> of the San Francisco Chronicle</p> </div></div> <script type="text/javascript"> sfgate_get_fprefs(); </script> </div> <div class="tools tools_bot"> <div class="hr"><hr/></div> <table> <tr> <td class="print"><a onmouseover="document.getElementById('printlink').style.textDecoration='underline';" onmouseout="document.getElementById('printlink').style.textDecoration='none';" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=printable"><img src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/graphics/article/tools/print.gif" alt=""/></a><a id="printlink" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=printable" onmouseover="this.style.textDecoration='underline';" onmouseout="this.style.textDecoration='none';">Print</a></td> <td class="email"><a href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=friend&emailcolor=%23135B46&origin=http://www.sfgate.com/cgi-bin/article.cgi%3Ff%3D%2Fc%2Fa%2F2006%2F12%2F03%2FMNGRVMOA7A1.DTL" onmouseover="document.getElementById('emaillink').style.textDecoration='underline';" onmouseout="document.getElementById('emaillink').style.textDecoration='none';"><img src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/graphics/article/tools/mail.gif" alt=""/></a><a id="emaillink" href="/web/20090207131522/http://www.sfgate.com/cgi-bin/article.cgi?f=/c/a/2006/12/03/MNGRVMOA7A1.DTL&type=friend&emailcolor=%23135B46&origin=http://www.sfgate.com/cgi-bin/article.cgi%3Ff%3D%2Fc%2Fa%2F2006%2F12%2F03%2FMNGRVMOA7A1.DTL" onmouseover="this.style.textDecoration='underline';" onmouseout="this.style.textDecoration='none';">E-mail</a></td> <td class="share"><div id="sharepop2mask" onmouseover="document.getElementById('sharepop2box').style.display='none'; 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src="https://web.archive.org/web/20090207131522im_/http://imgs.sfgate.com/templates/types/tophomes/graphics/header-tophomes.gif" alt="San Francisco Chronicle Real Estate" title="Go to the San Francisco Chronicle Real Estate section" border="0"/></a></h3> <p class="intro">From<br/><strong>Cashin Co.</strong></p> <div class="firstitem"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905283&source=tophomes" target="listing" title="view details for this property">San Mateo</a></h4> <p class="description">2 BR / 2 BA</p><p class="price">$395,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905346&source=tophomes" target="listing" title="view details for this property">Redwood City</a></h4> <p class="description">5 BR / 4 BA</p><p class="price">$1,248,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905359&source=tophomes" target="listing" title="view details for this property">San Mateo</a></h4> <p class="description">1 BR / 1 BA</p><p class="price">$499,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905380&source=tophomes" target="listing" title="view details for this property">Redwood City</a></h4> <p class="description">2 BR / 1 BA</p><p class="price">$459,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905386&source=tophomes" target="listing" title="view details for this property">Burlingame, Hillsborough</a></h4> <p class="description">3 BR / 2 BA</p><p class="price">$2,395,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905392&source=tophomes" target="listing" title="view details for this property">Half Moon Bay</a></h4> <p class="description">4 BR / 4 BA</p><p class="price">$699,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905395&source=tophomes" target="listing" title="view details for this property">Burlingame, Hillsborough</a></h4> <p class="description">2 BR / 1 BA</p><p class="price">$749,000</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Rentals/Listing.asp?lid=149-80905479&source=tophomes" target="listing" title="view details for this property">San Mateo</a></h4> <p class="description">3 BR / 2 BA</p><p class="price">$3,200</p> </div> <div class="item"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905621&source=tophomes" target="listing" title="view details for this property">Sunnyvale</a></h4> <p class="description">5 BR / 2 BA</p><p class="price">$899,000</p> </div> <div class="lastitem"> <h4><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/Listing.asp?lid=149-80905700&source=tophomes" target="listing" title="view details for this property">San Mateo</a></h4> <p class="description">3 BR / 1 BA</p><p class="price">$486,000</p> </div> <div class="logo"><p class="more"><a href="https://web.archive.org/web/20090207131522/http://realestate.sfgate.com/RealEstate/Sales/SearchResults.asp?RoS=S&CID=149&CountyIds=10,15,11,16,12,17,13,18,14&RegionIds=10,15,11,16,12,17,13,18,14" target="listing">See more from this broker</a></p> <p><img 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