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CPS is making it sound simpler than it may actually be. First off, the police will usually tell her "it's a civil matter" and that she has to go t court and get an order before they will get involved.
If there is no court order in place establishing the custody of the child then each parent has an equal right to the child. That means either of them can keep the child. If she can get the police to go with her to get the child then certainly she is safe doing so but if they won't then she has to either wait until the time he agreed to give the child back or she can go ahead and file papers with the court asking the judge to order the child to be turned over to her and also establishing child support, custody, and visitation.