Police Ombudsman Nuala O'Loan investigated the man's death
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Police procedures and training for dealing with car chases have been criticised by the Police Ombudsman.
It follows an investigation by Nuala O'Loan's office into the death of 19-year-old Raymond Robinson.
Police were pursuing him in Whiteabbey in April 2004. Their car slid down a steep bank towards a stream. He became trapped under the vehicle and drowned.
Mrs O'Loan said it had been a "tragic accident" and "no individual officer was guilty of misconduct".
However, she said "severely deficient" police training and pursuit policies may have contributed to the fatality.
"From the evidence it is clear that police did not deliberately run into Mr Robinson," she said.
'Visibility poor'
"Visibility was poor and, although he was driving slowly, the driver of the police car was unaware until the last moment that he was approaching a steep drop, or that a collision with Mr Robinson was imminent.
"He and other officers at the scene did all they could to free Raymond from beneath the car."
The family of Mr Robinson have said they are concerned about the way the incident was handled and are considering their options.
Officers had been responding to reports a car matching the description of Mr Robinson's vehicle was being driven erratically.
The car was driven at speed across some rough ground before skidding to a stop. The driver ran off, followed by a police car.
The ombudsman said tests showed the police car was likely to have been travelling at a speed of between 13 and 16mph before it reached the edge of the steep bank.
A post-mortem report revealed that although Mr Robinson had suffered a range of injuries, the cause of death was drowning.
It also revealed that he had twice the legal driving limit of alcohol in his bloodstream at the time of his death, as well as traces of solvents and cannabis.
Forensic analysis of the police car showed no damage to the bonnet area, which the ombudsman said suggested Mr Robinson had not been run over at speed before becoming trapped.
Mrs O'Loan recommended the PSNI should develop a new pursuit policy and police control rooms should play a greater role in managing pursuits.
She said specialist commentary training should be an essential part of police driver training and police drivers should be given guidance about the need for control room authorisation for pursuits.
The PSNI has begun preparing for the implementation of a new pursuits policy.
"It is my hope that the introduction of the new policy will greatly reduce the likelihood of such tragic incidents occurring in the future," she said.