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Viewing cable 07PORTAUPRINCE1182, MINUSTAH'S EFFECTIVENESS IN COMBATTING SEXUAL

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Reference ID Created Released Classification Origin
07PORTAUPRINCE1182 2007-07-06 18:38 2011-08-26 00:00 UNCLASSIFIED Embassy Port Au Prince
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 
 
 
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