Haiti Response to UN Efforts to Combat Sexual Exploitation

UNCLAS SECTION 01 OF 02 PORT AU PRINCE 000617

SENSITIVE
SIPDIS

STATE FOR WHA/CAR, IO/PSC

E.O. 12958: N/A
TAGS: PGOV PREL HA
SUBJECT: Haiti Response to UN Efforts to Combat Sexual Exploitation
and Abuse in Peacekeeping Missions

PORT AU PR 00000617 001.2 OF 002



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


2. (SBU) Summary. This message is Embassy's assessment of sexual
exploitation and abuse (SEA) by members of the UN Stabilization
Mission in Haiti (MINUSTAH) requested by reftel. Embassy assesses
that sexual exploitation by UN peacekeepers in Haiti is a residual,
diminishing problem. The most common form is MINUSTAH personnel
exchanging money and/or food for sexual favors. Haitian women
prostitutes - some of them underage - are the victims of this sexual
exploitation. Credible NGO sources have reported several accounts
of sexual exploitation by MINUSTAH personnel. However, human rights
representatives and NGOs agree that SEA acts have decreased since
late 2007 after the sexual misconduct by Sri Lankan peacekeepers was
publicly revealed in November 2007, who were later repatriated. End
summary.

MINUSTAH EFFORTS TO PREVENT SEA
--------------


3. (SBU) MINUSTAH officials report that the Conduct and Discipline
Office is responsible for (1) prevention of misconduct, (2)
reception of complaints of misconduct, and (3) advising the UN
Secretary General and the MINUSTAH Force Commander when a case of
misconduct occurs. MINUSTAH policy on sexual contact first reported
reftel is still in effect: military peacekeepers are forbidden any
sexual contact with Haitians. UN police and civilian personnel are
forbidden any transactional sex with Haitians, and are ''strongly
discouraged'' from any consensual sex with Haitians. Officials
state that prevention is the primary function of the office, and
that they enforce the UN's ''zero-tolerance'' policy on sexual
offenses by peacekeeping personnel.


4. (SBU) All MINUSTAH off-duty STAFF -- including military officers,
civilians and police -- is required to obey MINUSTAH-imposed curfew
hours of midnight to 0500 on weekdays and 0100 to 0500 on weekends.
UN vehicles are also required to be off the streets during these
times if not on specific duty. The curfew is intended to reduce the
potential for drunkenness, fighting, and soliciting prostitutes by
UN personnel. MINUSTAH has designated specific neighborhoods,
nightclubs and bars as off-limits to MINUSTAH personnel for the same
reasons.


5. (SBU) MINUSTAH officials report that the Unit has received a few
reports of SEA since the Sri Lanka scandal in 2007. The most recent
biannual UN SECURITY COUNCIL Report of the Secretary-General on
MINUSTAH, released in March 2009, stated that six Formed Police Unit
officers were repatriated for SEA between August 2008 and February

2009. MINUSTAH's Conflict and Discipline Unit trains all STAFF on
strategies to prevent SEA. The Unit provides one- to two-hour
in-country training workshops for newly-arrived contingents prior to
their deployment within Haiti. MINUSTAH also provides two
additional training sessions before expiration of their six-month
tours. MINUSTAH trained 2,620 STAFF from August 2008 to February
2009 on SEA issues and held training workshops for Conduct and
Discipline Unit international and local STAFF assigned to some 35
MINUSTAH field offices in Haiti. MINUSTAH launched an internal
campaign against transactional sex including a film festival. The
Secretary-General's March 2009 report also stated that communication
of the UN's policy against sexual exploitation and abuse was further
supported through field visits and outreach using MINUSTAH's
multimedia centers.


6. (SBU) In the event a complaint is filed, the Conduct and
Discipline Unit assesses the complaint's legitimacy and type (SEA,
criminal, administrative, etc) prior to making a recommendation to
the UNSRSG. Based on the UNSRSG's recommendation, UN Headquarters
makes a final decision on disciplinary action and/or next steps.
MINUSTAH's Office of Internal Oversight Services (OIOS) continues to
provide the UNSRSG monthly reports on its investigation of all
incidents. (Note: A Conduct and Discipline focal unit exists in
each MINUSTAH satellite office throughout Haiti and is staffed by
both a local and expatriate STAFF member. Each complaint is
registered in an electronic database for immediate access by UN
headquarters in New York. End note.)

GOVERNMENT OUTLOOK ON MINUSTAH PREVENTION OF SEA
-------------- ---


7. (SBU) Government of Haiti representatives maintain a dim view of
the conduct of MINUSTAH personnel toward Haitians, although they are
able to provide little evidence of such. Director of Protection in
the Office of Citizen Protection Necker DeSaables (the equivalent of

PORT AU PR 00000617 002.2 OF 002


a NATIONAL ombudsman) believed MINUSTAH personnel, especially
soldiers, take advantage of women and young girls, but she was
unable to cite specific cases, and said she finds it difficult to
find victims willing to testify. Director of Haitian NATIONAL
Police Child Protection Brigade (BPM) Renel Costume highlighted
MINUSTAH's improved conduct since exposure of the Sri Lanka case
(Note: Embassy has seen no reports of SEA by MINUSTAH personnel in
Haitian press this year. End Note.) He affirmed that the BPM has a
positive working relationship with UNPOL. Costume stated that in
the course of 2008, his office received only one complaint of SEA
from a teenage girl accusing a Pakistani MINUSTAH soldier. (Note:
BPM received numerous complaints alleging acts of SEA by Haitians
and civilian expatriates. End note) The BPM filed a grievance with
MINUSTAH, but Costume said he was unaware of any action taken by the
UN to address the complaint. The victim was referred to Haiti's
Institute of Social Welfare (IBESR) for support and other services.


NGO PERSPECTIVE OF MINUSTAH PREVENTION OF SEA
--------------


8. (SBU) Haitian NGOs Embassy has consulted have an even more
critical view of MINUSTAH's efforts to enforce discipline - but also
are unable to point to specific cases. NGOs are skeptical about
MINUSTAH's efforts to prevent SEA. Pan American Development
Foundation (PADF) Director of Programs Herve Razaphimbahiny and
National Defense Network for Human Rights (RNDDH) Executive Director
Pierre Esperance indicate that very little is known about MINUSTAH's
efforts to prevent SEA, or about its procedures for prosecuting SEA
violators. Razaphimbahiny characterized MINUSTAH acts of SEA as
''disturbing'' and stated that one area where SEA cases are reported
is the Port au Prince slum of Cite Soleil, where most cases involve
MINUSTAH soldiers engaging in sexual acts with underage prostitutes.
He claimed that MINUSTAH personnel acts of SEA also occur in the
Port-au-Prince neighborhoods of Champs de Mars (near the NATIONAL
Palace),Petion-Ville and near the international airport. He also
explained that a Ministry of Social Affairs representative within
the past year wrote a letter to MINUSTAH explaining several cases of
SEA that required action but was unaware whether MINUSTAH had
responded. He claimed that MINUSTAH's perceived lack of sanctions
gave their personnel a sense of impunity.


9. (SBU) Esperance echoed Razaphimbahiny's perception of deficient
MINUSTAH communication with its personnel and the Haitian public and
emphasized that ''victims do not know what to do [when involved in
SEA cases].'' He thought that UN Police (UNPOL) exhibit more
professionalism than military personnel. He complained that
MINUSTAH has offices that address human rights and justice, but
argued that the human rights office should serve as the umbrella
office to streamline the management of SEA complaints. Esperance
noted that there were many SEA cases involving MINUSTAH personnel
during 2005-2007 but believed there are fewer cases since the case
of the Sri Lanka contingent in 2007. Victims (Esperance could not
provide an approximate number) seek the services and support of
RNDDH for advocacy. RNNDH, in turn, files a complaint on behalf of
victims with MINUSTAH's human rights section. Esperance stated that
RNDDH follows up up on cases but receives limited feedback from
MINUSTAH, as the ultimate determination of disciplinary action rests
with UN Headquarters in New York.

INTERVIEW CONTACTS
--------------


10. (SBU) Government of Haiti: Renel Costume, Director of Haitian
National Police Child Protection Brigade (BPM); Necker DeSaables,
Director of Protection, Office of Citizen Protection.


11. (SBU) Non-Governmental Organizations: Herve Razaphimbahiny,
Pan-American Development Foundation Programs Director; Pierre
Esperance, Executive Director of local human rights organization
National Defense Network of Human Rights (RNDDH).


12. (SBU) Other: Joel Lorquet, Senior Information Assistant, US
Embassy Port-au-Prince.

TIGHE