[Bilingual, As delivered]
Thank you for this opportunity to brief you on important steps being taken and measures being put in place to end the exploitation and abuse of vulnerable people by United Nations personnel sent to protect them.
For many people caught up in poverty and conflict around the world, the United Nations represents their final hope for a better future. When sexual exploitation and abuse are perpetrated on these individuals by the United Nations personnel authorised to protect them, it further victimizes and violates them and inflicts untold harm on already fragile communities.
It undermines the trust between the United Nations and its beneficiaries, betrays the values and principles that the UN purports to advance, and tarnishes the credibility of United Nations peacekeeping operations and the United Nations as a whole.
The impact is not limited to the location of the abuse, but reflect on the efforts of tens of thousands of peacekeepers and civilian staff working tirelessly to save lives and protect people around the world in difficult and often dangerous conditions.
In June 2015, I, like you, was deeply dismayed by allegations of sexual exploitation and abuse of children by foreign military forces in the Central African Republic, and the United Nations’ response to these allegations.
In this context, I appointed a High Level External Independent Review Panel on Sexual Exploitation and Abuse by International Peacekeeping Forces in the Central African Republic. The panel was led by distinguished Justice Marie Deschamps, with two other eminent persons. In mid-December 2015, the Panel submitted its report which depicted a United Nations that uncovered the abuses, but failed to respond meaningfully and with the speed, care or sensitivity required.
A number of the Panel’s recommendations are already being implemented, while those that have far-reaching implications or require action by legislative bodies, Member States and partners are being considered.
Given the importance of addressing the systemic weaknesses that the Panel’s report exposed, I have appointed a Special Coordinator, Ms. Jane Holl Lute. Ms. Lute will support me in reviewing and advancing implementation of the Panel’s recommendations and in strengthening our response to such abuse.
Let me turn to my latest annual report to the General Assembly on Special Measures on Protection from Sexual Exploitation and Abuse.
The report shows an increase in the number of new allegations in 2015, with a total of 99 for the United Nations system. Sixty-nine of these allegations were lodged against United Nations personnel serving in peace operations. This reflects an increase in allegations within UN peacekeeping operations, with multiple allegations from MINUSCA and increases in allegations from MONUSCO, ONUCI and MINUSMA. Further allegations have continued to come to light this year.
In the face of this disturbing trend across a number of our peacekeeping operations, it is imperative that our collective response is more effective.
My report proposes strong new initiatives in three key areas: first - ending impunity, second - helping and supporting victims; and third - strengthening accountability, including through action by Member States.
First and foremost, to end impunity, greater transparency is critical.
This year, for the first time, my report names the countries of alleged perpetrators. Country-specific information is publicly available on the website of the Conduct and Discipline Unit of the Department of Field Support. I intend to expand this information to cover all outstanding allegations of sexual exploitation and abuse, including the status of referrals for criminal accountability.
This will enable and hold accountable the United Nations and Member States to address every allegation of sexual exploitation or abuse in a thorough and timely manner, through proper investigation and just punishment.
Second, the victims, many of whom are children, need our protection and support. We are finalizing the establishment of a trust fund that will provide them with the medical, psychosocial and legal services they need.
I have asked Member States to approve the transfer to the trust fund of payments that will be withheld in substantiated cases of sexual exploitation and abuse. I encourage Member States to make voluntary contributions to the fund.
I have also urged all troop and police contributing countries to designate paternity focal points. We will follow up vigorously to ensure that children borne as a result of these terrible abuses receive the support they need.
Member States must also consider how they will respond to claims from victims who pursue legal action to seek redress.
Third, accountability demands the conduct of solid investigations that can withstand judicial scrutiny in disciplinary and criminal proceedings.
This will require developing uniformly high standards of investigation.
It entails building the capacities of Immediate Response Teams to gather and preserve evidence.
All investigations should be concluded within six months at most, with the most urgent cases concluded within three months. I urge Member States to adopt this standard.
I also urge Member States to cooperate with the Office of Internal Oversight Services (OIOS) in the conduct of investigations.
I am strongly committed to monitoring accountability for violations. Where appropriate, this will include taking action up to and including the repatriation of commanders, or of whole contingents.
We have already put this into practice in repatriating troops serving in the Central African Republic, due to alleged sexual exploitation and abuse.
When I requested the resignation of my Special Representative for MINUSCA last August, I further signalled that this Organization would hold itself accountable for such violations.
I will also consider ending the deployment of uniformed personnel from specific Member States if there is prima facie evidence of widespread or systemic exploitation and abuse.
Accountability demands that Member States live up to their responsibility to bring to justice those who have committed crimes while serving with the United Nations. We expect them to impose sanctions commensurate with the seriousness of the offence.
I have asked Member States to establish on-site court martial proceedings, and to ensure that domestic legislation applies to sex crimes committed by their nationals while they are serving [in] United Nations peace operations. I have also called for the collection of DNA samples of alleged offenders.
We also continue to emphasize prevention. Significantly, this year, for the first time, we will be able to vet all uniformed personnel for previous allegations of misconduct while in the service of the United Nations. We are increasing our support for pre-deployment training by Member States.
We will also consider imposing new rules to curtail the social activities of peacekeeping contingents, including designating certain geographical areas as out-of-bounds.
Ces efforts constituent un pas important vers la fin de ces crimes et des terribles souffrances qu'ils infligent aux victimes. Nous ne pouvons assurer l'application du principe de responsabilité, notamment de responsabilité pénale, que si les pays qui fournissent des contingents et du personnel de police enquêtent rapidement et minutieusement sur de telles allégations et si les auteurs sont dûment punis.
L'Organisation des Nations Unies est fermement déterminée à œuvrer avec les États Membres afin que l'action judiciaire nationale permette d'appliquer le principe de responsabilité et de combattre l'impunité.
This is a global issue. It is not confined to any one region, mission or nation.
I am determined that the United Nations must lead by example.
Sexual exploitation and abuse by United Nations personnel demands nothing less than decisive and bold action.
I am committed to working with Member States to confront this criminal conduct, and to justify the trust of the people we serve, to ensure that this Organization remains a beacon of hope for the most vulnerable.
Thank you.
Secretary-General’s answers to questions raised during the above meeting:
Thank you, Mr. President, and distinguished members of the Council. First of all, I would like to thank you for your initiative in organizing this very important discussion, which has a lot to do with our reputation and our work in the future. This open discussion on this shameful issue will raise the urgency and awareness of the necessity of taking immediate action based on the principle of accountability and transparency. It has really made me not only humbled and deeply regretful, as well as ashamed as Secretary-General of the United Nations, but I am sure that the message you have conveyed strongly and without ambiguity will ensure that I and the senior advisors of the United Nations—particularly those in responsible staff positions—are even more committed to this matter.
Again, I am very sorry for the victims, especially the young minors whose human rights and dignity have been totally abused. I truly apologise for not having taken as much thorough care on this matter. I thank you for providing clear guidelines and directions to the Secretariat, to me personally, and to the world. The United Nations is fully committed to this.
As Ambassador Samantha Power has eloquently, passionately and emotionally stated, this concerns our reputation. How is it possible that we have not been able to address this issue much earlier? There is a saying that a small roach or mudfish can make a clean stream dirty and murky. We must eliminate these kinds of practices—these roaches and mudfish. I am fully committed to working with you on this matter.
At the same time, while this situation is extremely shameful, we must honour the integrity, sacrifice and hard work of tens of thousands of peacekeepers and police officers working under very difficult and often dangerous conditions. We have lost many peacekeepers. We must honour their reputation and integrity; their honour should not be tarnished by the actions of a small number of individuals. I commit myself fully to this.
During my term as Secretary-General, since 2007, I have raised this issue as one of my top priorities—how to end violence against women. In 2007, I launched the UNiTE to End Violence against Women campaign. In 2008, knowing that we could not change the situation without changing the mentality of men, I established a Male Leaders’ Network. I have reached out to government leaders, business leaders, religious leaders and others around the world to eliminate these practices. But what do we see now? This is happening in‑house. We must be responsible for addressing it.
I appointed, for the first time, a Special Representative on Sexual Violence, and I also have a Special Representative on Children and Armed Conflict. More recently, I appointed Jane Holl Lute. Appointing Special Representatives may help, but I need everybody—all Member States, the Secretariat and field personnel—to work together.
As I indicated in my report, this issue must be addressed comprehensively. First and foremost, we must do much more to end this violence. Then, we must help the victims. I appreciate your willingness to provide financial and other support to the Trust Fund. I am also grateful for your agreement to my proposal that salaries of those who have committed violations be withheld and transferred to the Trust Fund. These are small steps, but I need your strong support.
We must ensure strong accountability and responsibility. Without firmly establishing accountability in our mindset and systems, we will continue to see these crimes. In that regard, I will ensure that we expedite investigations into pending issues. From 2010 to 2015, we received 407 alleged cases. Of these, 80 percent have been concluded. As of the end of 2015, 54 cases remain open, many of which were reported that same year. We will expedite all remaining investigations. Of the 407 cases, 353 have been completed. Forty‑eight remain. Even though I previously suggested a six‑month deadline for investigations, we will shorten this timeline.
Once allegations are reported, we will take interim measures—for example, suspending individuals involved from the Mission, confining them to barracks, or imposing other restrictions. Salaries will be withheld whenever possible.
Some Member States have expressed concerns about the honour and reputation of troop‑contributing countries. We have long respected this, refraining from disclosing country names. However, we realised this approach has not helped. Last year, we repatriated contingents from certain Member States, whose names were made public. We also established a Conduct and Discipline website, where all cases and country names are posted and available to Member States and the public. There may always be questions about whether naming and shaming is appropriate, but sometimes making such information public is necessary to encourage better conduct.
Pre‑deployment education and training are essential, including strong instruction on human rights, gender equality and the importance of preventing misconduct. Without the strong engagement and commitment of Member States, it will be extremely difficult for the Secretariat alone to manage these cases.
As Secretary-General over the years, I have confronted many Heads of State directly. Some have made excuses: “It was not my people; rebels committed the crimes.” But I have said: “Mr. President, these crimes occurred within your sovereign territory. You are responsible.” I have had difficult and uncomfortable conversations with Heads of State. I remain fully committed to confronting any country that continues to commit such crimes—especially within the UN system itself. We must clean our own house before we can effectively encourage Member States to eradicate sexual violence. This is my firm commitment.
I greatly appreciate the Security Council raising this issue today.