Staff at a Birmingham nursery where a toddler was raped raised concerns about paedophile Paul Wilson's "special relationship" with the child.
A review into the case by the city's Safeguarding Children Board also found that students on a local childcare course complained about a male member of staff "taking children into the adult toilet on his own and sitting them on his lap".
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The Police Federation chairman said officers were often "letting someone off with a warning and hoping for the best".
A total of 21 are also injured by a blaze which ripped through the upmarket 22-storey hotel on the Black Sea coast.