Well, Ratzinger may have codified a policy in 2001 based on existing practices of his and many other bishops of shielding predators from the civil authorities.
The policy known as "Crimen Sollicitationis" was devised in 1962, long before Pope John Paul II appointed Ratzinger as Prefect of the Congregation for the Doctrine of the Faith. Hence he didn't create the policy, but he reminded bishops of it circa 2001:
The Associated Press: Vatican offers 3 reasons it's not liable for abuse
" The existence of Crimen did not become publicly known until 2003, when a lawyer noticed a reference to the document while reading a 2001 letter written by Benedict, then Cardinal Joseph Ratzinger. McMurry is seeking to subpoena Ratzinger's letter, which instructed all bishops to send cases of clerical sex abuse to him and to keep the proceedings secret."
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