The TTC needs stronger oversight of its transit enforcement unit, according to an investigation by the city ombudsman that was prompted by a violent altercation at Union Station two years ago.

In a 74-page report released Friday, Ombudsman Susan Opler determined that the unit’s policy around reporting use of force “is not clear” and that officers’ training in dealing with people affected by mental illness is “limited.”

Her report made 26 recommendations, all of which the TTC has agreed to implement.

“As a public organization employing staff with similar powers to those of police officers and the authority to use force against and arrest citizens, the public interest requires that the TTC have a comprehensive, effective and publicly accessible oversight system in place,” Opler wrote.

The ombudsman’s office launched its review in April 2015, days after video that showed transit officers repeatedly punching and hitting two men who were leaving a Toronto Maple Leafs game began circulating widely online. The footage of the Jan. 29, 2015 melee sparked criticism from the public and expressions of concern from elected officials about the use of force by transit cops.

The TTC had already improved its use of force reporting in the wake of the incident. But while Opler wrote that the transit agency “should be credited” for taking those steps, she said her investigation “reveals that more should have been done.”

The ombudsman didn’t examine the conduct of the two officers in that case, who were cleared of any wrongdoing by a separate police investigation.

In his written response to the ombudsman’s report, TTC CEO Andy Byford thanked Opler for her “thorough investigation” and said “we agree with and support the recommendations in your report.”

The recommendations include: amending the enforcement unit’s use of force policies to emphasize de-escalation techniques; ensuring that unit members receive regular mental illness training; implementing a process to investigate officers in the absence of a public complaint; enhancing public reporting about violent incidents, and installing cameras on all transit patrol vehicles.

Byford said the TTC is in the process of implementing 23 of the 26 recommendations, and one has already been completed. The remainder will be implemented this year, he said, although it will take until the end of 2018 to finish installing cameras on patrol cars.

“Ensuring transparent oversight of an enforcement body is critical to both public trust and confidence, something the TTC embraces and supports in all that it does,” said TTC spokesperson Brad Ross in an email.

The transit enforcement unit consists of 42 enforcement officers and 69 fare inspectors.

In 2014, the Toronto Police Services Board entered into an agreement with the TTC to designate the enforcement officers as “special constables,” which grants them limited police powers including the authority to make arrests and enforce certain sections of the criminal code. They’re authorized to carry and use handcuffs, pepper spray, and a baton. Fare inspectors have lesser powers.

Unlike police officers, members of the unit aren’t subject to provincial oversight through the Office of the Independent Police Review Director or the Special Investigations Unit. Instead, oversight responsibility falls to the TTC and the police board.

In an interview, Opler said the special constables have an “in-between status.” She said that because the enforcement unit is bound by requirements of its agreement with the police board, it’s possible “the TTC didn’t put as much thought as it might have into what oversight scheme the TTC itself wanted to have.

“Now we’re saying… the public expects you to have your own robust oversight system.”

According to the enforcement unit’s 2016 annual report, last year officers employed use of force “beyond physical control and compliant handcuffing” on 14 occasions.

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Ten of the incidents involved “empty hand techniques” to arrest non-compliant suspects. Officers used batons to “effect pressure point compliance” three times, and struck someone with a baton once.

In January, the two civilians involved in the Union Station altercation sued the TTC for $4 million. Ross said the case is still before the courts and the agency wouldn’t be commenting further.

According to Ross, one of the officers no longer works for the TTC for reasons unrelated to the incident.

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