Sexual Exploitation and Abuse at the Hands of UN Peacekeepers: Translating Outrage into Action

I would like to thank both the Secretariat and Prince Zeid for their briefings today on this matter.  In particular, I would like to commend Prince Zeid for the important work he has done as the Secretary General’s special advisor to shine light on what is arguably one of the greatest stains on UN history.  It is absolutely unacceptable that horrific crimes of sexual abuse and exploitation have been committed by UN peacekeepers against individuals they have been assigned to protect.  Having an open briefing on this subject is important because, while we rightly express our moral outrage, we must take firm and decisive action.  We must take action now not only to pursue justice and a resolution to the crimes that have already been committed, but to establish the necessary institutions, mechanisms, training, and oversight procedures to ensure they are not repeated in existing and future peacekeeping operations.  We cannot wait months and years while more children are exploited and the reputation of UN peacekeepers continues to decline.

Failure to act on this matter will have profound implications for both existing and potential future peacekeeping missions.  As we begin to plan our next operation in Darfur, we do not want to contemplate potential headlines of UN peacekeepers in Darfur raping the very population that they are entrusted to protect.  We concur in full with Under Secretary Guehenno when he remarked last May that, “Indeed, it is precisely our image and reputation that gives us the credibility to work so effectively in war-torn countries and bring peace and stability to millions across the world.  Eliminating such misconduct is therefore integral to the success of peacekeeping.”

Throughout our wide-ranging discussions on a variety of issues related to UN reform, we have spoken of the need for a fundamental change in the culture of the way the UN operates.  We have heard Paul Volcker, Chairman of the Commission investigating the Oil-for-Food Scandal speak of a “culture of inaction.”  Just yesterday we discussed the Office of Internal Oversight Services report on DPKO procurement where they spoke of a “culture of impunity.”  My colleagues, resolution and prevention of future acts of sexual exploitation and abuse call for the same fundamental shift.  We are pleased that the Secretariat acknowledges this point, with Under Secretary General Guehenno remarking that, “We need to create a culture and environment in peacekeeping operations that does not permit sexual exploitation and abuse.  This requires joint action by both DPKO and Member States.”

The United States for its part takes its responsibility as a member state seriously in this regard.  We are working closely with others to finalize language in the new, amended Memorandum of Understanding issued by DPKO last fall and encourage other Troop Contributing Countries (TCCs) to do so as well.  The United States Congress has expressed keen interest in this matter and has taken action.  In 2005, Congress passed and President Bush signed the 2005 reauthorization of the Trafficking Victims Protection ACT (TVPRA) of 2000.  This new legislation requires the executive branch, starting in June 2006 to report annually to the U.S. Congress on the actions taken by the United Nations and other international organizations to prevent trafficking and sexual exploitation and abuse by employees, contractors, and peacekeeping forces.  It also requires the Secretary of State to report to the U.S. Congress on the effectiveness of these actions prior to voting on any new or reauthorized peacekeeping mission.

The U.S. Government has also taken action on an important matter closely linked to the problem of sexual exploitation and abuse at the hands of peacekeepers -- the spread of HIV.  We have fully supported and will continue to support Security Council Resolution 1308.  The U.S. Department of Defense, and more recently the President’s Emergency Plan for AIDS Relief, have provided resources and technical assistance to implement long-term strategies for HIV/AIDS education, prevention, counseling, testing, and treatment in more than 70 military and peacekeeping populations around the world.   Since the adoption of Resolution 1308, the U.S. has assisted with the HIV/AIDS education of over 2 million uniformed personnel, trained 7000 uniformed peer-educators, established more than 200 HIV/AIDS counseling and testing facilities on or near military bases, provided HIV/AIDS diagnostic and screening equipment to 30 militaries, and trained over 600 uniformed medical personnel in the care and treatment of HIV infected personnel and their families.

We strongly endorse the recommendations of the UN General Assembly’s Special Committee on Peacekeeping to strengthen enforcement of a uniform UN code of conduct for peacekeepers, improve the capacity of the UN - in cooperation with troop contributing countries - to investigate allegations of sexual exploitation and abuse, establish assistance to and compensation for victims, and enhance pre-and post-deployment training for UN peacekeepers.  We also welcome the creation of personal conduct units within the UN Missions in Burundi, Cote d’Ivoire, the Democratic Republic of Congo, East Timor, Haiti, Liberia, Sierra Leone, and Sudan to address allegations and to assist victims. We feel it is critical that all U.N. Missions adopt similar units in each of their respective fields.  We will strongly encourage other UN Security Council members to continue to support the inclusion in UNSC resolutions establishing peacekeeping operations specific and strong language to this end.  Finally, we take special note of DPKO’s efforts to increase the participation of female uniformed personnel serving in UN peacekeeping operations.

We are concerned, though, about the status and progress of the investigations into past cases of abuse.  We understand that the Office of Internal Oversight Services (OIOS) took over all investigations as of last October and is expected to issue a report this May.  We expect that DPKO will cooperate fully with OIOS in its investigations of past abuses and in providing access to all information on new allegations as they surface.  We know this is a daunting task and that OIOS has only begun to scratch the surface of this problem.  To date the UN has investigated 295 personnel resulting in 137 repatriations and 16 dismissals of soldiers, commanders, police and UN staff.  It is also critical that OIOS operate with complete autonomy to investigate these matters.  This will help all parts of the organization by insulating it from accusations of trying to cover up the scope and magnitude of the problem.  I note that OIOS is absent today as it was absent yesterday and we find this troubling.  I note also that the Secretary General’s chief of staff did not answer my question yesterday on the independence of OIOS, and we find that troubling as well.  And we intend to pursue those matters. 

All of these vitally needed reforms by the UN must also be matched by resolve on the part of troop contributing countries to prevent and punish crimes by their personnel who participate in UN peacekeeping missions.  Pre- and post-deployment training compliance, adequate living standards for troops, discipline, and compensation for victims requires commitment and action by troop contributing countries.

We understand that no system will be perfect and there will be instances, which require member states to prosecute their citizens in their own courts.  For those countries that have repatriated alleged perpetrators of these heinous crimes, we encourage them in the strongest terms to follow the lead of countries such as Morocco and be transparent and forthright in their judicial proceedings.  The international community expects no less.  We know this is not always an easy task, but it is an important one. 

It was two years ago that the world began to wake up to the reality that we are confronted with today -- that the sexual exploitation and abuse of women and children at the hands of U.N. peacekeepers is not an isolated incident -- it is a widespread scourge which creates lasting victims, scarred for their lifetimes.  The ‘boys will be boys’ attitude, which too long pervaded peacekeeping operations, must correctly be met with a zero tolerance policy.  Now that we are aware of this problem, though, it is time to take this recognition and translate it into decisive action without delay.  We should do so not just because we recognize the impact of such crimes on the success of a particular Mission, but because it is our moral and ethical responsibility to do as much as possible to prevent the sexual exploitation and abuse of women and children wherever it may exist.