Identifier
Created
Classification
Origin
07PORTAUPRINCE1182
2007-07-06 18:38:00
UNCLASSIFIED
Embassy Port Au Prince
Cable title:  

MINUSTAH'S EFFECTIVENESS IN COMBATTING SEXUAL

Tags:  PGOV PREL PHUM HA KPKO 
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VZCZCXRO5421
PP RUEHQU
DE RUEHPU #1182/01 1871838
ZNR UUUUU ZZH
P 061838Z JUL 07
FM AMEMBASSY PORT AU PRINCE
TO RUEHC/SECSTATE WASHDC PRIORITY 6450
INFO RUEHZH/HAITI COLLECTIVE PRIORITY
RUEHBR/AMEMBASSY BRASILIA PRIORITY 1581
RUEHSA/AMEMBASSY PRETORIA PRIORITY 1400
RUEHQU/AMCONSUL QUEBEC PRIORITY 0843
RUMIAAA/HQ USSOUTHCOM J2 MIAMI FL PRIORITY
RUCNDT/USMISSION USUN NEW YORK PRIORITY 1254
UNCLAS SECTION 01 OF 02 PORT AU PRINCE 001182 

SIPDIS

SIPDIS

STATE FOR WHA/EX AND WHA/CAR
S/CRS
SOUTHCOM ALSO FOR POLAD
STATE PASS AID FOR LAC/CAR
INR/IAA
WHA/EX PLEASE PASS USOAS

E.O. 12958: N/A
TAGS: PGOV PREL PHUM HA KPKO
SUBJECT: MINUSTAH'S EFFECTIVENESS IN COMBATTING SEXUAL
EXPLOITATION AND ABUSE

REF: A. STATE 89356


B. 06 PORT-AU-PRINCE 2375

PORT AU PR 00001182 001.2 OF 002


UNCLAS SECTION 01 OF 02 PORT AU PRINCE 001182

SIPDIS

SIPDIS

STATE FOR WHA/EX AND WHA/CAR
S/CRS
SOUTHCOM ALSO FOR POLAD
STATE PASS AID FOR LAC/CAR
INR/IAA
WHA/EX PLEASE PASS USOAS

E.O. 12958: N/A
TAGS: PGOV PREL PHUM HA KPKO
SUBJECT: MINUSTAH'S EFFECTIVENESS IN COMBATTING SEXUAL
EXPLOITATION AND ABUSE

REF: A. STATE 89356


B. 06 PORT-AU-PRINCE 2375

PORT AU PR 00001182 001.2 OF 002



1. (U) This cable is sensitive but unclassified ) please
protect accordingly.


2. (U) The following information is in response to Reftel A
requesting information on the effectiveness of UN efforts to
combat sexual exploitation and abuse (SEA) in UN peacekeeping
missions. Reftel B is the last submission from post on SEA
investigations in Haiti. Haiti currently hosts the United
Nations Mission for the Stabilization of Haiti (MINUSTAH).
As of May 2007, MINUSTAH had 7,050 soldiers, 1,760 police
officers, 457 international UN officials, 806 national
officials, and 184 volunteers.

Measures taken to combat SEA
--------------


3. (U) Ruhul Sur, MINUSTAH's chief personal conduct officer
in the Conduct and Discipline Unit (CDU),directs the
mission's SEA prevention efforts. MINUSTAH's anti-SEA
efforts focus on training, enforcement, and victim
assistance. All members of MINUSTAH receive anti-SEA
training. The CDU directly trains all civilian officials who
are prohibited from engaging in sexual acts with prostitutes
and children. Police officers receive training and are also
prohibited from engaging in sexual acts with prostitutes and
children. Every police officer also signs a statement
committing to uphold MINUSTAH's anti-SEA stance. (Note.
While sexual activity with prostitutes and children are
forbidden, sexual relationships with local residents are not
forbidden, though formally ''strongly discouraged.'' End
note.) The military contingent receives anti-SEA training as
well, but is totally prohibited from having any sexual
contact with any local resident. Enforcement efforts include
designating as off-limits known places where prostitutes
frequent; patrolling in the provinces for mission vehicles in
known places that prostitutes frequent; establishing a 12:00
AM ) 5:00 AM curfew for all MINUSTAH members; keeping the
soldiers in the barracks at night; performing alcohol level

checks; and referring violations and SEA allegations to the
Office of International Services (OIOS). Since the UN is in
the process of finalizing its victim assistance policy,
MINUSTAH has yet to develop official victim assistance
mechanisms. In the meantime, MINUSTAH accepts voluntary
statements from fathers willing to support the children they
leave behind in Haiti.

Disposition of cases
--------------


4. (U) According to the CDU, Haitian nationals registered
22 SEA complaints in 2006, of which the OIOS transferred 10
to the mission for investigation. The OIOS investigated 11
cases with 1 case remaining unaccounted. Of the 10 cases
referred to the mission for investigation, the mission
substantiated 1 allegation and forwarded 2 cases, 1 to the
Child Protection Unit (which is pending report) and another
paternity case to the Permanent Mission of the country
concerned. The mission could not substantiate SEA
allegations in the remaining 7 cases. Of the 11 cases
investigated by OIOS, the OIOS substantiated 1 allegation,
while 3 remained unsubstantiated. The OIOS continues to
investigate the remaining 7 cases. None of the cases
involving minors (under the age of 18) have been
substantiated to date. The two substantiated cases involved
prostitution, for which MINUSTAH repatriated the personnel.
In 2007 to date, Haitian nationals registered 9 SEA
allegations, all of which the OIOS is investigating.

Perceptions of MINUSTAH's anti-SEA efforts
-------------- --------------


5. (SBU) GHESKIO (which treats SEA victims),the
International Organization for Migration (IOM),the
Pan-American Development Foundation, the National Human
Rights Defense Network (RNDDH),and a former Canadian
Embassy/MINUSTAH security officer all report not receiving

PORT AU PR 00001182 002.2 OF 002


any SEA allegations against MINUSTAH. The Ministry of
Interior also did not receive any SEA allegations against
MINUSTAH. These sources also concurred that the sexual
exploitation and abuse of minors is relatively rare.
Nevertheless, all noted that prostitution is a problem.
MINUSTAH non-military personnel visit bars and clubs where
prostitutes congregate, hence the off-limits list, and
solicit sexual favors under the guise of the routine
socializing that occurs in these types of establishments.
The sexual activity usually does not occur on the premises.
In addition, both RNDDH and IOM noted that SEA victims were
unwilling to lodge complaints because the sexual exploitation
and abuse sometimes took place in established, personal
relationships.

Organizations contacted
--------------


6. (U) Sources: Within MINUSTAH: the Conduct and
Discipline Unit, the Human Rights Section, and the Child
Protection Unit. GoH: the Director of Political Affairs and
Human Rights within the Ministry of Interior. NGOs:
GHESKIO, the International Organization for Migration, the
National Human Rights Defense Network (RNDDH),and the
Pan-American Development Foundation (which has a human rights
unit). Poloff consulted one individual who worked as a
security officer for the Canadian Embassy and within
MINUSTAH's Patrol and Emergency Response Unit, but who
currently works as UNICEF's security officer.

MINUSTAH's effectiveness in combating SEA
-------------- --------------


7. (SBU) Comment. Without question, MINUSTAH's CDU takes
its anti-SEA mandate very seriously. It has trained 1,317
personnel in 2007, distributed an anti-SEA themed calendar,
is planning to reissue the off-limits list since owners of
these establishments rename their businesses, and is planning
an anti-prostitution campaign for August 2007. Furthermore,
the CDU enjoys the support of the highest levels within the
mission. For example, the military force commander, Major
General Carlos Alberto Dos Santos Cruz, participated for the
entire morning in an anti-SEA officer training session, where
he himself reiterated the zero-tolerance policy of sexual
contact for the military. Finally, MINUSTAH appears to have
communicated successfully its uncompromising intolerance of
sexual exploitation and abuse of minors.


8. (SBU) Comment continued. Still, the CDU faces
significant challenges. The first challenge that the CDU
readily admits is eradicating the use of prostitutes among
mission personnel: civilian, police, and to a lesser extent,
the military. The second challenge is that there is no legal
definition for sexual relationships being ''strongly
discouraged.'' Consequently, the CDU has no mandate to
prohibit sexual relationships where there is no explicit
commercial transaction, but are exploitative and abusive
nonetheless. Post concludes that despite the CDU's ardent
efforts, sexual exploitation and abuse occurs by MINUSTAH
members who are determined to circumvent MINUSTAH's anti-SEA
mechanisms. These efforts to evade the anti-SEA mechanisms
include parking UN vehicles in a safe area and walking to the
off-limit establishment on foot, and justifying relationships
with prostitutes. Haitian (and trafficked Dominican)
prostitutes and business owners help MINUSTAH members evade
anti-SEA mechanisms by relocating the commercial aspect of
the relationship off-site, exchanging money for otherwise
legitimate services such as massage or housework, or renaming
the bars/night clubs, thereby removing them from the
off-limit list. End comment.
SANDERSON