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THE PROTECTION OF WITNESSES

Gregory Lacko

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NOTES

1

At least two terms may describe those who provide police with information that is not otherwise available : "contacts" and "informants". A "contact" is a person who provides information but usually without seeking anything in return. An "informant" is a person who provides information gained through criminal activity or association with others involved in criminal activity. An "undercover agent" is a person tasked by investigators to assist in the development of a targeted operation.

2

Statistics Canada, Canadian Centre for Justice Statistics. – Ron Logan. – Police resources in Canada, 2002. – Ottawa : Minister of Industry, 2002. – Page 5.

3

The RCMP is organised under the authority of the Royal Canadian Mounted Police Act, Statutes of Canada, 1985, chapter R-10.
Available at http://laws.justice.gc.ca/en/R-10/text.html

4

www.rcmp-grc.gc.ca/nps/nps_e.htm

5

On 12 December 2003 the Prime Minister announced the creation of the Ministry of Public Safety and Emergency Preparedness. This new ministry became responsible for the Solicitor General of Canada portfolio which, in addition to the RCMP, included these operational agencies : the Correctional Service of Canada (CSC) ; the National Parole Board (NPB) ; and the Canadian Security Intelligence Service (CSIS). The new ministry is also responsible for the Office of Critical Infrastructure Protection and Emergency Preparedness, the National Crime Prevention Centre, and the new Canada Border Services Agency. See :
http://www.psepc-sppcc.gc.ca/index-en.asp

  Though created on 12 December 2003, the government did not introduce legislation to establish the Department of Public Safety and Emergency Preparedness until 8 October 2004. Bill C-6, An Act to establish the Department of Public Safety and Emergency Preparedness and to amend or repeal certain Acts, provides for, among other things, the legislative foundation to establish the powers, duties and functions of the Minister. Clause 8 of the Bill transfers the powers, duties and functions of the Solicitor General of Canada to the Minister of Public Safety and Emergency Preparedness. Clause 34 of the Bill contains changes in terminology to, among other Acts, the Royal Canadian Mounted Police Act and the Witness Protection Program Act. The definition of "Minister" in each of these acts will be changed from "Solicitor General of Canada" to "Minister of Public Safety and Emergency Preparedness".
  At the time of completion of this document, Bill C-6 had only received second reading in the House of Commons. Thus, upon the coming into force of Bill C-6 (on a day to be fixed by order of the Governor in Council), every reference in this document to "Solicitor General" will be replaced by a reference to the "Minister of Public Safety and Emergency Preparedness".

6

Statistics Canada, Canadian Centre for Justice Statistics. – Ron Logan. – Police resources in Canada, 2002. – Ottawa : Minister of Industry, 2002. – Page 5. Municipal policing may also consist of enforcing laws in several adjoining municipalities that comprise a region, such as the Durham Regional Police in the province of Ontario.

7

Statistics Canada, Canadian Centre for Justice Statistics. – Ron Logan. – Police resources in Canada, 2002. – Ottawa : Minister of Industry, 2002. – Page 5. The Royal Newfoundland Constabulary is a provincial police service that polices four municipalities in Newfoundland and Labrador. The remaining municipalities and rural areas are policed under contract by the RCMP. The RCMP provides police services under the terms of municipal policing agreements to many other municipalities throughout Canada.

8

Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4495.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

9

The program was called the "Source-Witness Protection Program" : Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4495. Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

10

The Information Commissioner of Canada. – Annual Report 1994-1995. – Ottawa, Minister of Public Works and Government Services of Canada, 1995. – ISBN 0-662-61862-9. – Page 17.
Available at www.infocom.gc.ca/reports/pdf/OIC94_5E.PDF

11

The Information Commissioner of Canada. – Annual Report 1994-1995. – Ottawa, Minister of Public Works and Government Services of Canada, 1995. – ISBN 0-662-61862-9. – Page 17. Available at www.infocom.gc.ca/reports/pdf/OIC94_5E.PDF

12

The Information Commissioner of Canada. – Annual Report 1994-1995. – Ottawa, Minister of Public Works and Government Services of Canada, 1995. – ISBN 0-662-61862-9. – Page 17. Available at www.infocom.gc.ca/reports/pdf/OIC94_5E.PDF

  Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4496.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

13

Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4496.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

14

Herb Gray (Solicitor General of Canada), Evidence before the Standing Committee on Justice and Legal Affairs, meeting number 177, House of Commons, First session, Thirty-fifth Parliament, 18 October 1995. Available at
www.parl.gc.ca/committees/jula/evidence/177_95-10-18/jula177_blk101.html

15

Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4495.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

  Nick Discepola (Parliamentary Secretary to Solicitor General of Canada), House of Commons Debates, Volume 134, Number 079, 1996. – Page 5013. Available at
http://collection.nlc-bnc.ca/100/201/301/hansard-e/35-2/079_96-10-02/079PB1E.html

16

Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4495.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

17

Don Boudria, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4495.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

18

Mary Clancy (Parliamentary Secretary to Minister of Citizenship and Immigration), House of Commons Debates, Volume 133, Number 266, 1995. – Page 16917.
Available at
www.parl.gc.ca/english/hansard/previous/266_95-11-28/266GO3E.html

19

Corporal Jeff Warren, RCMP, Evidence before the Standing Senate Committee on Legal and Constitutional Affairs, Issue 10, Senate of Canada, Second session, Thirty-fifth Parliament, 9 May 1996.
Available at www.parl.gc.ca/english/senate/com-e/lega-e/10ev-e.htm

20

Corporal Jeff Warren, RCMP, Evidence before the Standing Senate Committee on Legal and Constitutional Affairs, Issue 10, Senate of Canada, Second session, Thirty-fifth Parliament, 9 May 1996.
Available at www.parl.gc.ca/english/senate/com-e/lega-e/10ev-e.htm

21

Shaughnessy Cohen, House of Commons Debates, Volume 133, Number 238, 1995. – Page 15263.
Available at
www.parl.gc.ca/english/hansard/previous/238_95-10-05/238GO1E.html

22

Geoff Regan, House of Commons Debates, Volume 133, Number 238, 1995. – Page 15266.
Available at
www.parl.gc.ca/english/hansard/previous/238_95-10-05/238GO1E.html

23

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 24.

24

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Pages 29–30.

25

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 30.

26

All amounts mentioned in this document are in Canadian dollars.

27

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 136.

28

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 144.

29

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 44.

30

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Pages 155, 163–164. Before relocating Mitchell in the program, the RCMP evaluated his business and proposed a financial settlement to compensate for its loss and the loss of other business opportunities.

31

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 151. The RCMP provided Mitchell with a weekly allowance.

32

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 165.

33

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 168.

34

James F. Kelleher (Solicitor General of Canada), Evidence before the Standing Committee on Justice and Solicitor General, Issue Number 3, House of Commons, Second session, Thirty-third Parliament, 4 December 1986. – Pages 3 : 22 – 3 : 23.

35

Robert Simmonds (Commissioner of the RCMP), Evidence before the Standing Committee on Justice and Solicitor General, Issue Number 6, House of Commons, Second session, Thirty-third Parliament, 16 December 1986. – Page 6 : 21.

36

Robert Simmonds (Commissioner of the RCMP), Evidence before the Standing Committee on Justice and Solicitor General, Issue Number 6, House of Commons, Second session, Thirty-third Parliament, 16 December 1986. – Page 6 : 23.

37

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 171.

38

Leonard Mitchell ; Peter Rehak. – Undercover agent. – Toronto, McClelland and Stewart, 1988. – ISBN 0-7710-6061-0. – Page 171.

39

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 72.

40

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 21.

41

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 21.

42

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 151.

43

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 153.

44

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 196.

45

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Pages 194–195.

46

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 203.

47

The Queen v. A. – Decision of the Supreme Court of Canada, 15 February 1990 – [1990] 1 Supreme Court Reports. – Pages 995–1004, at page 998.

48

The Queen v. A. – Decision of the Supreme Court of Canada, 15 February 1990 – [1990] 1 Supreme Court Reports. – Pages 995–1004, at page 998.

49

The Queen v. A. – Decision of the Supreme Court of Canada, 15 February 1990 – [1990] 1 Supreme Court Reports. – Pages 995–1004, at page 999.

50

Peter Edwards. – The big sting. – Toronto, Key Porter Books, 1991. – ISBN-1-55013-360-8. – Page 206.

51

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

52

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

53

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

54

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

55

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

56

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

57

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

58

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

59

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

60

Where the Commission Chairman considers it advisable in the public interest, a public hearing to inquire into a complaint may be instituted. The Commission Chairman then assigns members of the Commission to conduct that hearing. When the hearing is completed, an interim report is prepared, setting out the Commission's findings and recommendations. This report is sent to the Solicitor General of Canada, the RCMP Commissioner and to all parties and their counsel appearing at the hearing. The RCMP Commissioner must, upon receipt of the interim report, review the complaint in light of its findings and recommendations. The RCMP Commissioner, who is not bound by the report, then notifies the Chairman of any further action that has or will be taken with respect to the complaint or reasons for not acting. After this is done, the Chairman prepares a final report setting out findings and recommendations with respect to the complaint. That report is sent to the complainant, the members who are the subject of the complaint, the RCMP Commissioner and the Solicitor General of Canada.

61

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

62

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

63

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

64

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

65

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

66

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

67

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

68

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

69

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

70

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

71

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

72

The term "handlers" here refers to RCMP officers who are tasked with closely monitoring and guiding witnesses in the program.

73

RCMP Public Complaints Commission. – Chairman's final report after a public hearing. – 26 February 1993. – File Numbers : 2000-PCC-89212, 2000-PCC-89213.
Available at
www.cpc-cpp.gc.ca/DefaultSite/Reppub/index_e.aspx?articleid=312

74

Tom Wappel, House of Commons Debates, Volume 133, Number 012, 1994. – Page 677. Private Members' Bills are legislative initiatives sponsored by a private Member, that is, a Member who is not a Minister. These bills are public policy initiatives that affect whole or part of the general public.
www.parl.gc.ca/common/bills_about.asp?Language=E&Parl=37&Ses=2

75

Bill C-206, An Act to provide for the relocation and protection of witnesses, First session, Thirty-fifth Parliament, 1994. Bill C-206 proposed that the Governor in Council designate a member of the Privy Council as the "Minister" responsible for making decisions as to whether people should be protected and relocated. In making this decision, Bill-206 provided that the Minister have regard to the degree of danger to the person, alternatives to relocation and protection, any information obtained concerning the psychological condition of the person, impact on the person's family and any other factor considered relevant. Before providing protections and relocation, Bill C-206 required the Minister to enter into a memorandum of understanding with the person setting out each party's responsibilities. Bill C-206 would have made the Minister's decision final and insulated it from review or appeal by any court. Bill C-206 would also have shielded any decision of the Minister from lawsuits.

76

Pat O'Brien, House of Commons Debates, Volume 133, Number 072, 1994. – Page 4499.
Available at
www.parl.gc.ca/english/hansard/previous/072_94-05-26/072PB1E.html

77

A Private Member's Bill follows the same legislative process as a government bill, but the time allotted for its consideration is very limited. Consequently, very few Private Members' Bills complete the process and become law.

78

Patrick Gagnon (Parliamentary Secretary to the Solicitor General of Canada), House of Commons Debates, Volume 133, Number 053, 1994. – Page 3306.
Available at
www.parl.gc.ca/english/hansard/previous/053_94-04-20/053PB1E.html

79

Herb Gray (Leader of the Government in the House of Commons and Solicitor General of Canada), House of Commons Debates, Volume 133, Number 173, 1995. – Page 10859.
Available at
www.parl.gc.ca/english/hansard/previous/173_95-03-23/173RP1E.html

80

The Department of the Solicitor General of Canada. – Solicitor General Herb Gray introduces bill to establish legislated federal witness protection program. – Ottawa, 23 March 1995. Available at
www.psepc-sppcc.gc.ca/publications/news/19950323_e.asp

81

Tom Wappel, House of Commons Debates, Volume 133, Number 242, 1995. – Pages 15535–5536.
Available at
www.parl.gc.ca/english/hansard/previous/242_95-10-18/242RP1E.html

82

The Department of the Solicitor General of Canada. – Solicitor General Herb Gray introduces bill to establish legislated federal witness protection program. – Ottawa, 23 March 1995. Available at
www.psepc-sppcc.gc.ca/publications/news/19950323_e.asp

83

The Department of the Solicitor General of Canada. – Solicitor General Herb Gray introduces bill to establish legislated federal witness protection program. – Ottawa, 23 March 1995. Available at
www.psepc-sppcc.gc.ca/publications/news/19950323_e.asp

84

The first session of the thirty-fifth Parliament ended on 2 February 1996 before Bill C-78 completed the legislative process. It was reintroduced as Bill C-13 on 8 March 1996 in the second session of the thirty-fifth Parliament.

85

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 4. There have been some minor amendments to the Act since its coming into force.

86

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, sections 4 and 5. Though the Commissioner is ultimately responsible for the program's administration, he may delegate responsibility to another member of the force.

87

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 19.

88

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 14. Such protection is provided on a cost-recovery basis.

89

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 2.

90

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 2.

91

The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 2.
92 The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 2.
93 Ottawa, presentation at RCMP headquarters on the Witness Protection, Human Source and Undercover Program, 21 January 2003.
94 Ottawa, presentation at RCMP headquarters on the Witness Protection, Human Source and Undercover Program, 21 January 2003.
95 The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, paragraph 6(1)(a).
96 The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, paragraph 6(1)(b). The Commissioner can authorise a member of the Force who holds a rank no lower than Chief Superintendent to decide whether to admit a witness to the program : The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, subsection 15(a).
97 The Witness Protection Program Act, Statutes of Canada, 1996, chapter 15, section 7.
98 As explained in Edwards v. Canada (Attorney General), – Decision of the Ontario Superior Court of Justice, 31 July 2000 – [2000] 35 Criminal Reports (5th Edition). – Pages 270–289, at paragraph 13.
99 As explained in Edwards v. Canada (Attorney General), – Decision of the Ontario Superior Court of Justice, 31 July 2000 – [2000] 35 Criminal Reports (5th Edition). – Pages 270–289, at paragraph 13. If the use of an agent is approved, the agent must sign a letter of agreement outlining the obligations of the RCMP and agent. This letter is separate and distinct from a witness protection agreement which, if protection is deemed necessary, is signed after completion of the agent's work.
100 As explained in Edwards v. Canada (Attorney General), – Decision of the Ontario Superior Court of Justice, 31 July 2000 – [2000] 35 Criminal Reports (5th Edition). – Pages 270–289, at paragraph 13.

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