A Commission of Investigation has found senior gardaí failed in their duties when dealing with allegations against convicted paedophile Bill Kenneally, allowing him to continue abusing children for decades.

The South East Commission of Investigation examined how State agencies, politicians, health authorities, members of the clergy and sporting organisations responded to allegations of child sexual abuse involving the former basketball coach.

Kenneally is currently serving a 19-year prison sentence for sexually abusing 15 boys in Waterford between 1979 and 1990. Investigators believe at least 14 other children were also abused.

The commission found there was no evidence of widespread collusion by State authorities to shield Kenneally from prosecution because of his links to a prominent political family. However, it concluded that failures by authorities to properly investigate allegations in the late 1980s had devastating consequences for victims.

Retired judge Michael White, who chaired the inquiry, said many people in positions of responsibility knew by the end of 1987 that Kenneally was abusing children, yet no effective action was taken until a formal complaint was made by victim Jason Clancy in 2012.

The report highlighted several missed opportunities to stop Kenneally. One involved a 14-year-old boy who reported being sexually abused at a garda station in 1985. The commission found the complaint was not properly investigated after the boy was told he needed an adult present and no follow-up action was taken.

A further complaint was made by the father of one of Kenneally’s victims in late 1987. Although the family did not wish to make a formal statement, the commission found legislation at the time still allowed for Kenneally’s arrest and investigation.

Senior gardaí interviewed Kenneally in December 1987, during which he admitted sexually abusing teenage boys and claimed to have identified several victims. Rather than arresting him, they referred him for psychiatric treatment and carried out no further investigation.

Judge White found that while the initial response by then Acting Chief Superintendent Sean Cashman was appropriate, the handling of the case deteriorated significantly after Christmas 1987. He described the subsequent investigation as unprofessional, rushed and unsuitable.

The report found Acting Superintendent PJ Hayes should have stepped aside because of his personal connections to members of the Kenneally family. It also criticised the decision to contact former Fianna Fáil TD Billy Kenneally before any proper investigation had begun, saying this risked compromising the inquiry.

The commission concluded that a proper investigation at the time would likely have uncovered photographs Kenneally had taken of naked boys, identified additional victims and revealed the extent of the threat he posed to children.

Judge White said gardaí underestimated both the seriousness of Kenneally’s behaviour and the risk he represented. He said referring him to psychiatric treatment and relying on professional assurances demonstrated both naivety and a serious failure of duty.

The report also examined the response of the former South Eastern Health Board. It found a 1989 report detailing allegations involving two boys and references to threats, grooming and photographs was not acted upon. Judge White described the failure to follow up on the information as another missed opportunity to stop Kenneally years before his eventual prosecution.

The commission investigated whether members of the Kenneally family interfered with efforts to prosecute him. It found that former TD Billy Kenneally and Monsignor John Shine, both now deceased, were aware of allegations of abuse involving at least one child by the late 1980s. However, the inquiry found no evidence either man interfered with the garda investigation.

The report also examined the actions of former Fianna Fáil TD and senator Brendan Kenneally. Judge White said there was no direct evidence he knew about the abuse before 2001. However, once informed of allegations that year, his response fell well below the standards expected of an experienced public representative.

The commission said Brendan Kenneally should have alerted child protection services, sought a risk assessment and advised Bill Kenneally to step down from his role with Waterford Vikings basketball club. It also criticised his decision to continue allowing his cousin to assist with political campaigning.

Judge White said a common theme among family members who became aware of allegations was their failure to report concerns to the agencies responsible for protecting children.

The report also highlighted shortcomings in child protection and criminal justice systems during the 1980s, describing legislation as outdated and coordination between agencies as poor.

Among its recommendations, the commission called on the Law Reform Commission to urgently examine the introduction of an offence of misconduct in public office. Judge White said current laws do not adequately deal with serious dereliction of duty by public officials unless it amounts to deliberately obstructing justice.

The judge paid tribute to the victims for their courage and resilience and expressed hope that the findings would provide some measure of peace of mind.

Following publication of the report, victims of Bill Kenneally called for formal apologies from the Government, the Catholic Church, the Department of Health and Fianna Fáil. The calls were made during a press conference organised by survivors in Dublin.