soma ALLEGATIONS OF SEXUAL EXPLOITATION AND ABUSE IN THE ITURI REGION (BUNIA) IN THE UNITED NATIONS MISSION IN THE DEMOCRATIC REPUBLIC OF THE CONGO

UNITED NATIONS NATIONS UNIES

ALLEGATIONS OF SEXUAL EXPLOITATION AND ABUSE
IN THE ITURI REGION (BUNIA) IN THE UNITED NATIONS MISSION
IN THE DEMOCRATIC REPUBLIC OF THE CONGO
(ID Case No. 0618/05)
I. INTRODUCTION
1. In January 2006, the Investigations Division of the Office of Internal Oversight
Services (ID/OIOS) deployed investigators to Bunia, the Democratic Republic of the
Congo (DRC), to investigate allegations of sexual exploitation and abuse by
peacekeepers deployed in the United Nations Mission in the DRC (MONUC).
2. During the course of its investigation, ID/OIOS received 217 allegations of
sexual abuse and exploitation against a total of 75 peacekeepers. Only one allegation was
substantiated because the girls who had initially made the allegations either refused to
participate further or failed to identify the alleged perpetrators during lineups of the
peacekeepers. This report is an overview of the ID/OIOS investigation and the problems
it identified. Allegations of sexual exploitation and abuse against specific peacekeepers
are addressed in the forty-eight reports on individual cases appended hereto.
II. BACKGROUND INFORMATION
3. Bunia is the capital of Ituri Province which is in the northeast area of the DRC. In
May 2003 the region experienced intense ethnic conflict which resulted in the
displacement of tens of thousands of Congolese citizens, many of whom were sheltered
in a camp for internally displaced persons (IDP) in Bunia.
4. In May 2004, the media reported allegations of widespread sexual exploitation
and abuse by United Nations (UN) peacekeepers deployed with MONUC. At the request
of MONUC senior management, ID/OIOS investigated 72 allegations of sexual
exploitation and abuse and issued reports to the Department of Peacekeeping Operations
(DPKO) and MONUC on 20 individual cases, 19 of which involved military personnel.
Six allegations of sexual exploitation and abuse were substantiated. This was
summarized in the report entitled “Investigation by the Office of Internal Oversight
Services into allegations of sexual exploitation and abuse in the United Nations
Organization Mission in the Democratic Republic of the Congo” (A/59/661 of 5 January
2005).
5. Bunia remains the headquarters and logistics base of MONUC Sector 6. The
national contingents in this Sector are from Member State 1, Member State 2, Member
State 3, Member State 4, Member State 5 and Member State 6. The military police unit is
from Member State 7.
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6. When this investigation started in January 2006, the majority of displaced persons
had been assimilated within the local community and the IDP camp was a fraction of its
original size. Most of the local population continues to live in poverty. The countryside
around Bunia remains affected by conflict, although not as intensive as in 2004.
7. Prostitution is a fact of life and a source of income for some girls and women in
the DRC, especially in its impoverished areas. While prostitution is not a crime, one who
profits from prostitution is criminally liable. Sexual relations with a child less than 14
years of age is also a crime.
III. APPLICABLE LAW
8. Ten Rules: Code of Personal Conduct for Blue Helmets
4) “Do not indulge in immoral acts of sexual, physical or psychological
abuse or exploitation of the local population or United Nations staff, especially
women and children.”
9. We are the United Nations Peacekeepers
“We will never:
- Become involved in sexual liaisons which could affect our impartiality, or
the well-being of others.”
10. Department of Peacekeeping Operations Directives for Directives for Disciplinary
Matters Involving Military Members of National Contingents
III. Definitions, Paragraph 4
“Serious Misconduct: Any act, omission or negligence, including criminal acts,
that is a violation of mission standard operating procedures, directives, or any
other applicable rules, regulations or administrative instructions that results in or
is likely to result in serious damage or injury to any individual or to the mission.
Serious misconduct includes, but is not limited to:
• Sexual abuse and exploitation of any individual, particularly children;
• Conduct prejudicial to good order and discipline;”
IV. Standard of Conduct, paragraph 6
“Military members of national contingents are required to abide by the highest
standards of integrity while in service for the United Nations. They shall refrain
from any conduct that would adversely reflect on the United Nations and shall not
engage in any activity that is incompatible with the aims and objectives of the
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United Nations. They are also required to abide by mission standard operating
procedures, directives, or any other applicable rules, regulations or
administrative issuances.”
11. Special measures for protection from sexual exploitation and sexual abuse
(ST/SGB/2003/13)
Section 1 - Definitions
“The term ‘sexual exploitation’ means any actual or attempted abuse of a
position of vulnerability, differential power, or trust, for sexual purposes…
Similarly, the term ‘sexual abuse’ means the actual or threatened physical
intrusion of a sexual nature, whether by force or under unequal or coercive
conditions.”
Section 2 – Scope of Application
“United Nations forces conducting operations under United Nations command
and control are prohibited from committing acts of sexual exploitation and sexual
abuse, and have a particular duty of care towards women and children, pursuant
to section 7 of Secretary General’s bulletin ST/SGB/1999/13, entitled Observance
by UN forces of international humanitarian law.”
Section 3 – Prohibition of sexual exploitation and sexual abuse
“3.2 (a) Sexual exploitation and sexual abuse constitute acts of serious
misconduct and are therefore grounds for disciplinary measures,
including summary dismissal;
(b) Sexual activity with children (persons under the age of 18) is
prohibited regardless of the age of majority or age of consent locally.
Mistaken belief in the age of a child is not a defence;
(c) Exchange of money, employment, goods or services for sex, including
sexual favours or other forms of humiliating, degrading or exploitative
behaviour, is prohibited. This includes any exchange of assistance that is
due to beneficiaries of assistance.”
12. Observance by United Nations forces of international humanitarian law
(ST/SGB/1999/130
Section 7
“7.2 The following acts against [civilians] are prohibited at any time and in
any place:…enforced prostitution; any form of sexual assault and humiliation and
degrading treatment.
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7.3 Women shall be especially protected against any attack, in particular
against rape, enforced prostitution or any other form of indecent assault.
7.4 Children shall be the object of special respect and shall be protected
against any form of indecent assault.”
12. Administrative Circular No. 2002/020, Conduct in the Democratic Republic of
Congo regarding the prohibition of sexual abuse and/or exploitation by members
of the Civilian and Military Components of MONUC
Section 1:
“Any act of sexual abuse and/or exploitation by members of the Civilian and
Military components of MONUC is strictly prohibited and constitutes an act of
serious misconduct.”
Section 2:
“For the purpose of this memorandum, an act of sexual abuse and/or exploitation
is defined as follows:
(a) Any exchange of money, employment, goods or services for sex, including
sexual favours or other forms of humiliating, degrading or exploitative
behaviour…
(b) Any sexual activity with a person under the age of 18. The mistaken belief
in the age of the person cannot be considered as a defence…
IV. METHODOLOGY
13. ID/OIOS interviewed all identified victims who were willing to cooperate. Other
persons who potentially had information, and were located and willing to cooperate with
the investigation, were also interviewed.
14. To protect the identities of the girls alleged to have been involved in sexual
activities with peacekeepers in the Bunia area during this investigation, they are referred
to as “victims” in this report. Most of the witnesses to the allegations of sexual
exploitation and abuse were themselves victims.
15. After all the victims were interviewed, relevant documents and photographs were
obtained and analyzed. Victims and witnesses viewed photographic arrays of
peacekeepers in an attempt to identify the alleged perpetrators. Often the victims had to
be shown photographs of an entire contingent’s rotation (approximately 750
peacekeepers) or, if a victim could recall the specific date of the sexual encounter,
photographs of the approximately 150 peacekeepers who were in the area at that time.
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16. ID/OIOS intended to have all peacekeepers identified in the photographic arrays
participate in a physical lineup for more conclusive identification purposes and then
participate in interviews with ID/OIOS. However, unbeknown to ID/OIOS investigators
upon their arrival in Bunia in January 2006, the Member State 1 Contingent had a
rotation of troops scheduled for the first week of March. After a case-by-case analysis of
all evidence, ID/OIOS requested the postponement of the rotation of 39 Member State 1
peacekeepers. Although an additional 36 Member State 1 peacekeepers had been
identified by witnesses participating in the photographic identification process, ID/OIOS
concluded that insufficient evidence existed to postpone their repatriation, primarily
because there was no identification of these peacekeepers by a victim willing to
cooperate in the investigation.
17. The lineups and interviews were conducted in the presence of a military legal
officer and a representative from the respective military contingent.
V. INVESTIGATIVE DETAILS
The Allegations
18. Upon their arrival, ID/OIOS met with the coordinators of a local nongovernmental
organization (NGO), which provided reports of Congolese girls who had
given birth to babies allegedly fathered by MONUC peacekeepers. Over the course of
the following week ID/OIOS investigators spoke with Congolese girls at the NGO office
who provided additional sexual exploitation and abuse (SEA) allegations against
peacekeepers. These girls ranged from 15 to 18 years of age.
19. From 17 January to 13 February 2006 the following allegations were received by
ID/OIOS:
Sexual exploitation and abuse allegations1 217
Alleged victims2 54
Babies3 fathered or girls impregnated 10
Peacekeepers alleged to have engaged in sexual
exploitation and abuse with local girls 4 75
1 This figure includes the original 11 allegations and represents sexual relationships rather than individual
sexual acts. It also includes allegations reported by third parties.
2 Not all the alleged victims were interviewed. Of the 54 alleged victims, 14 admitted that they had had
sexual relations with a peacekeeper(s), 3 denied involvement with peacekeepers, 20 could not be found, 10
were not identified, and 7 refused to cooperate with ID/OIOS.
3 All victims and witnesses interviewed referred to babies fathered by UN peacekeepers as “white babies”,
regardless of the color of the baby or the alleged father.
4 The photographic arrays viewed by victims and witnesses resulted in the identification of 75 peacekeepers
still in the mission, 73 from Member State 1 and 2 from Member State 3. However, during the physical
lineup victims identified only 27 peacekeepers with whom they claimed to have had sexual relations.
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20. ID/OIOS investigated allegations against 39 peacekeepers.5 Only one allegation
was sustained, which has been reported as ID Case No. 0360/06, and there was a
recommendation in another involving paternity, ID Case No. 0201/06, that Member State
1 pursue the investigation because the subject peacekeeper had been repatriated before he
was interviewed and a DNA sample taken.
Victims, Witnesses and Alleged Perpetrators
21. None of the girls interviewed by ID/OIOS came from a stable environment.
Education beyond elementary grades was non-existent. They often lived with prostitutes,
friends or distant relatives. Most had no visible means of financial support, although one
claimed to be a hairdresser and two stated that they sold charcoal.
22. A group of about 10 girls who refused to cooperate in the investigation were
reported to be residing at a liquor store/bar which was, in effect, a brothel. This was one
of three such establishments identified during the course of the investigation. Two of the
establishments were later visited by ID/OIOS staff and found to be exactly as described
by the victims: a bar in the front and a small room containing a mattress in the back.
23. One girl who did cooperate with the investigation clearly saw herself as a
prostitute and advised ID/OIOS that she had had sexual relations with more than 15
peacekeepers. This particular girl had been a victim in the 2004 ID/OIOS investigation,
as were nine other victims in the current investigation.
24. The majority of the girls referred to the peacekeepers with whom they were
having sexual relations as their “boyfriends”. Upon the boyfriend’s rotation6 out of the
area, the girl often became sexually involved with a new “boyfriend”. The “boyfriends”
paid for sex with cash ($2 to $5), food or clothes. Notwithstanding the very limited
nature of these relationships, when interviewed or when viewing the photographic arrays
some girls cried or stated that they did not want to get their “boyfriends” into trouble.
25. Some witnesses and victims who turned up for interview expected a financial
compensation for the time being spent on the interview, which ID/OIOS was unable to
provide. This made it difficult for other witnesses to cooperate since the news had gone
round that there was no money involved in interviews. Some victims who admitted
having sexual relationships with peacekeepers, refused to take part in a photo
identification parade, unless they were paid a substantial sum of money as compensation.
Since ID/OIOS does not pay for information gathering, this very important aspect of the
investigation regrettably could not take place in some cases and they could not be
conclusively investigated. Prostitutes have the tendency of migrating from one place to
the other, in search of places where they can earn more from their work. They change
5 As noted in paragraph 16, 75 peacekeepers were identified in the photographic array identification
process, but ID/OIOS requested the postponement of the repatriation of only 39.
6 Often girls provided ID/OIOS with the exact date their “boyfriends” departed the mission.
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their names and ages as they move along, making their identification difficult since they
possess no civil status documents. This hampered the work of ID/OIOS.
26. On several occasions multiple witnesses identified the same peacekeeper from the
photographic arrays and provided testimony to corroborate each other’s evidence. Most
witnesses also described themselves as victims of sexual exploitation and abuse.
27. The 2004 investigation noted that young boys, acting as pimps, brought girls to
peacekeepers. In contrast, the 2006 investigation found that for the most part, the girls
now interacted directly with the peacekeepers.
28. During the course of interviews with the alleged perpetrators, not a single
peacekeeper admitted that he had engaged in sexual relations with any Congolese girls.
However, several peacekeepers stated that the girls often exposed their breasts, pulled up
their dresses and/or make sexual gestures towards the peacekeepers assigned to the guard
posts. ID/OIOS received confirmation from a Bunia Prosecutor and a ranking Bunia
police officer that the Member State 1 Contingent Commander, had complained in July
2005 that girls attempted to seduce Member State 1 peacekeepers.
29. The ranking Bunia police officer informed ID/OIOS that in one operation after the
complaint by the Member State 1 Contingent Commander, seven girls were arrested for
loitering outside the Member State 1 outposts and in a subsequent operation, 21 were
arrested. Bunia Prosecutor claimed that the arrests acted as a deterrent, but none of the
girls were charged because prostitution is not a crime in the DRC.
30. ID/OIOS also noted that several girls stated that some of the Member State 1
peacekeepers provided time, money and food to local girls without any expectation of
sexual favours.
Intimidation of Victims and Witnesses
31. As the investigation unfolded, peacekeepers identified in the photographic arrays
were informed that their repatriation would be delayed. This soon became public
knowledge and caused serious concern for many of the girls and peacekeepers. Victims
who had not cooperated in the investigation, those from the liquor store/bar, engaged in
verbal confrontations with those who had. They were upset about the possibility of
losing their economic livelihood and also warned victims who had cooperated with the
ID/OIOS investigation, and had babies allegedly fathered by peacekeepers, that their
babies might be taken away from them.
32. One victim informed ID/OIOS that she had received a message from a
peacekeeper that he would “hack them” if he ever saw them again.
33. Another victim reported that four girls had received a $10 bribe not to identify
peacekeepers and that the “Member State 1 Chief” then summoned them to the camp and
thanked them for not cooperating with the investigation. When confronted by ID/OIOS
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with this information, one of the four girls acknowledged that she had received $10 from
a peacekeeper, but denied that it was a bribe. Another admitted that a peacekeeper
warned her by telephone against future interactions with investigators, but denied that she
received any money. The third girl denied that she had been paid a bribe, and the fourth
refused to be interviewed by ID/OIOS investigators. The three girls who did cooperate
with the investigation had initially identified peacekeepers in the photographic arrays, but
either did not identify anyone in the physical identification parades and/or refused to
participate in the procedure. These developments tend to provide credence to the
information that some of the victims were bribed to not cooperate.
34. ID/OIOS investigators noted that the investigative process itself was intimidating
to the girls. Often their only exposure to authority had been sexual abuse by Congolese
militiamen or intimidation and solicitation of bribes by the local police. Apparently the
girls had never been exposed to the concept of a thorough and fair investigation. While
cultural and social barriers were broken down through informal interaction with female
ID/OIOS investigators, a lack of cooperation with the investigative process increased
significantly once the physical identification lineups commenced.
35. The girls also told ID/OIOS that they feared the local police and expressed
concern that their cooperation would lead to the involvement of the local police
authorities. Three girls provided corroborating and detailed evidence that before ID/OIOS
began its investigation, they were arrested after having been in contact with Member
State 1 peacekeepers. Two of the girls were beaten, including on their breasts, and held
overnight in custody, while the third was set free in order to get $5 for the release of the
other two, which she allegedly received from a Member State 1 peacekeeper.
The UN Military Environment in Bunia
36. The Ituri District Commander was reluctant to cooperate with ID/OIOS unless
directed to do so by the Force Commander or Contingent Commanders. It was also
apparent that the District Commander had little knowledge of the ID/OIOS mandate to
investigate allegations of sexual exploitation and abuse, despite the pre-deployment
training conducted with contingents in the mission by DPKO. Consequently, there were
significant delays in all aspects of the investigation that required input from the military
administration.
37. At least one sexual exploitation and abuse allegation was made against each
contingent, including the Member State 7 Military Police (MP). As discussed, ID/OIOS
concentrated its efforts on the cases in which the alleged perpetrator was still in the
mission, which dictated focus upon the Member State 3 and Member State 1 contingents.
38. Although the Member State 1 Contingent Commander in Bunia was supportive of
this ID/OIOS investigation, some officers of the Member State 1 Contingent were
extremely critical of ID/OIOS and its role in the investigation, despite repeated
explanations of its necessity. Some of the Member State 1 commanding officers
appeared to consider that ID/OIOS had elicited allegations, and stated to ID/OIOS that
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these allegations were either fabricated or attempts by the local population to take
advantage of their soldiers. They emphasized the stress and pressure this put on their
peacekeepers.
39. ID/OIOS observed the questionable attitude of the Member State 1 Military
Police Legal Officer assigned to liaison with ID/OIOS during the interview and
identification parade stages of the investigation. He informed ID/OIOS that a Congolese
girl advised him in the fall of 2005 that she had given birth to a baby fathered by a
Member State 1 peacekeeper. He stated that he viewed this allegation as an attempt to
extort money, as the girl had no evidence to support her claim, and therefore the
complaint was not reported to ID/OIOS in accordance with the provisions of
A/RES/59/287. ID/OIOS observed that this attitude was shared by other officers of the
Member State 1 Contingent.
Military Contingents
40. As part of its investigation ID/OIOS interviewed all of the Contingent
Commanders assigned to Bunia. It was confirmed that sexual exploitation and abuse
awareness training had been given to the peacekeepers both prior to their deployment and
upon arrival within Mission.
41. ID/OIOS observed, however, that only the Member State 3 Contingent has
implemented adequate preventive measures concerning sexual exploitation and abuse.
The Member State 3 Commander installed mesh within the military camp’s perimeter
fencing to prevent direct contact between the peacekeepers and the local population. Not
only were basketball, football, volleyball, a running track and miniature golf facilities
constructed within the camp, but mandatory games and tournaments, including a contest
to see which unit could construct the best garden in front of its designated barrack, were
also organized. Peacekeepers had access to Member State 3 television programs and
were provided with free telephone calls home. In addition, Member State 3 peacekeepers
were not paid their mission allowances while deployed in Bunia and consequently did not
have cash to pay for sex.
42. The Member State 1 Contingent was assigned responsibility for security and
perimeter control of Bunia. There were ten checkpoints within Bunia manned by the
Contingent. Peacekeepers were assigned 30-day rotations from one checkpoint to
another, during which they ate, slept and worked at the checkpoint. Their work and
accommodations were in direct contact with the local population, separated at most by a
string of barbed wire. Although there were limited recreational facilities at the main
camp, there were none at any of the checkpoints inspected by ID/OIOS.
43. The Member State 7 MP Unit in Bunia consisted of 11 military police officers.
Inquiries with the MP Commander revealed that the Unit had not received a single
allegation of sexual exploitation and/or abuse. However, within two days of its arrival in
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Bunia, ID/OIOS learned of several local establishments7 in which peacekeepers could
have sex. Additionally, as noted in this report, ID/OIOS received 217 allegations of
sexual exploitation and abuse by peacekeepers.
VI. FINDINGS
44. ID/OIOS must establish tangible and convincing evidence to support its findings
and recommendations. Consequently, although the allegations suggested frequent and
ongoing sexual exploitation and abuse, there was sufficient evidence to substantiate only
one of the allegations8.
45. However, pursuant to its mandate9, ID/OIOS is not only responsible for the
investigation of alleged violations but also for the assessment of serious risks to UN
operations which could lead to violations of established regulations, rules and policies.
In this regard, ID/OIOS notes the following concerns:
• The 2004 civil conflict in the DRC resulted in economic hardship, family
breakdown and poor education which made earning money by sex an
important wherewithal for some girls in the area and facilitated a pattern of
sexual exploitation and abuse. ID/OIOS observations suggest that some
peacekeepers take advantage of this weakness to participate in and encourage
prostitution, including child prostitution, in contravention of the regulations,
rules and established policies of the UN in general, and MONUC in particular.
This underlines the persistence and prevalence of SEA allegations in the area.
It is notable that ten of the girls reported to be victims in the 2004 ID/OIOS
investigation were also alleged to be sexually involved with UN peacekeepers
in 2006.
• The Member State 1 military outposts offer no preventive measures to deter
close contact with the local population, nor are their peacekeepers provided
with adequate recreational activities. This, coupled with the indifference of
some commanding officers10 towards allegations of sexual exploitation and
abuse, indicate the lack of effective preventive measures against sexual
exploitation and abuse by Member State 1 peacekeepers.
7 The “establishments” usually consisted of a two-room house in which one could purchase and drink beer.
ID/OIOS visited two such establishments: the front room was set up for drinking and the back room had a
mattress on the floor.
8 It should be noted that ID/OIOS was unable to address 135 of the 217 SEA allegations, the majority of
which were against peacekeepers who had already left the mission.
9 Paragraph 17 of ST/SGB/273.
10 This was evidenced by the refusal of a Member State 1 MP/Legal Officer to report an allegation of
paternity brought by a girl against a peacekeeper to ID/OIOS in accordance with the provisions of
A/RES/59/287 (see paragraph 39). Whether this was an attempt to extort money or a legitimate cry for
help cannot be established because the complaint was never reported - contrary to the Organization’s
commitment of zero tolerance towards sexual exploitation and abuse.
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• Shortly after its arrival in Bunia, ID/OIOS received 217 allegations of sexual
exploitation and abuse. These allegations, which were mainly against the
Member State 1 Contingent, included at least one allegation against each UN
military contingent in Bunia, including the Member State 7 MP. In contrast,
the MP contingent in Bunia informed ID/OIOS that it had not received a
single sexual exploitation and abuse allegation.
46. While there was sufficient evidence to substantiate only one allegation of sexual
exploitation and abuse against individual peacekeepers, ID/OIOS is of the considered
view that that girls and young women in Bunia remain at high risk of sexual exploitation
and abuse due to the following considerations:
• Several victims attended ID/OIOS interviews with their babies whom they
claimed were fathered by peacekeepers. All but one of the babies were noted by
investigators to be fair-skinned.
• Victims frequently had detailed knowledge of a peacekeeper, including his first
name, rank, position or exact repatriation date.
• Several of the victims began to cry when identifying their “boyfriends” during
the course of the photographic identification process, stating that they did not
want to get them in to trouble.
• While most victims stated they had “boyfriends”, some acknowledged that
they were prostitutes actively promoting their services to peacekeepers.
These assertions were further substantiated by Member State 1 Commander’s
complaint that local women were exposing themselves to his soldiers and the
subsequent “raids” by the local police (see paragraphs 28 and 29).
• Victims corroborated each others’ evidence of sexual contact with Member
State 1 peacekeepers and on several occasions identified the same individual
from an array of over 750 photographs.
• Victims identified several drinking establishments where peacekeepers could
obtain alcohol and sex. ID/OIOS investigators attended two of the
establishments and noted evidence of alcohol consumption in the front room
and a mattress in the back room, exactly as described by the victims. One
such establishment was located only 200 meters from the Member State 1
Contingent’s camp.
• ID/OIOS corroborated, to the fullest extent possible, information received
just prior to the physical identification process that victims who refused to
cooperate in the investigation engaged in verbal confrontation with those who
had (see paragraph 31), and that victims were subject to bribes and/or
intimidation by some of the Member State 1 peacekeepers (see paragraphs 32
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and 33).
47. Given the economic hardship, lack of family support or other sources of income
facing the victims along with the reported bribes and intimidation and apprehension of
the investigative process, it is not surprising that some victims refused to cooperate or
ceased their cooperation with the ID/OIOS investigation. Although only one allegation
was substantiated, it is likely that vulnerable girls are resorting to prostitution with
peacekeepers, which is a violation of ST/SGB/2003/13. Consequently, ID/OIOS
concludes that the environment in Bunia, as discussed, gives rise to a high risk that the
Organization’s commitment of zero tolerance towards sexual exploitation and abuse will
not be fulfilled.
48. The commanders of the Member State 3 Contingent in Bunia took a proactive
approach to preventing sexual exploitation and abuse by providing recreational and other
outlets for their soldiers. Their efforts should be used as a model for other national
contingents in MONUC.
VII. CONCLUSIONS
49. Instances of sexual exploitation and abuse do not occur in isolation. They are part
of an existing chain of problems that include poverty, political instability and abuse of
power, lack of education and income opportunities for girls and young women and lack
of prevention of the breaches of military discipline. Therefore, any attempt to achieve
zero tolerance of sexual exploitation and abuse must address all these root causes.
50. The 2004 ID/OIOS report on Bunia recommended measures aimed at alleviating
the problems with sexual exploitation and abuse in MONUC, as well as in other
missions11. DPKO accepted all the recommendations in the report, and detailed how it
envisaged implementing them. Some of them are reproduced below along with
ID/OIOS’ assessment of their implementation based on the findings of this investigation.
• Recommendation 2: The Department of Peacekeeping Operations and
MONUC, as a matter of high priority, should implement a strong prevention
programme, with emphasis on protecting the most vulnerable girls (those
under 18 years of age), and establish a rapid-response detection programme,
utilizing personnel experienced in such cases, beginning in Bunia on an
expedited basis and then expanding to the other regions of MONUC.
ID/OIOS concludes that implementation of this recommendation has been
insufficient in Bunia. Upon the arrival of the ID/OIOS team to Bunia, the
Member State 7 MPs reported that sexual exploitation and abuse was not a
significant problem (see last bullet of paragraph 45 above). However, ID/OIOS
soon received numerous SEA allegations and several allegations of paternity
involving peacekeepers (see paragraphs 18 and 19) which, although only one
11 See A/59/661, paragraphs 48-57.
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allegation was substantiated, suggests the likelihood of ongoing sexual
exploitation and abuse of local girls.
• Recommendation 3: Senior MONUC managers must become more involved and
demand accountability from both civilian administrators and contingent
commanders in the Mission. MONUC must take steps to ensure that
administrators and officers demonstrate implementation of all existing
regulations and policies aimed at preventing sexual abuse and exploitation.
ID/OIOS concludes that implementation of this recommendation has been
insufficient in Bunia. Upon the arrival of the ID/OIOS team in Bunia, the
Ituri Regional Commander was not aware of the provisions of
A/RES/59/287 (see paragraph 36). Consequently, delays in the investigation
occurred.
• Recommendation 4: The Department of Peacekeeping Operations and
MONUC should undertake a programme to provide regular briefings for
troops on their responsibilities to the local population and on prohibited
behaviours and to ensure that all troops and civilians on United Nations
missions are fully conversant with United Nations policies on the subject of
sexual exploitation and abuse.
ID/OIOS confirmed that sexual exploitation and abuse awareness training had
been given to all peacekeepers both prior to their deployment and upon arrival
within the Mission (see paragraph 40). ID/OIOS believes that this training should
be reinforced by regular refresher training in theatre.
• Recommendation 5: The MONUC Force Commander, in conjunction with
contingent commanders, should enforce strict discipline over the personnel
under their command.
ID/OIOS, noting that it received only two SEA allegations against the Member
State 3 contingent but received many more against members of the Member State
1 contingent, concludes that MONUC has not sufficiently implemented this
recommendation.
• Recommendation 6: MONUC should identify and implement measures that
ensure that all military compounds are adequately secured to prevent
unauthorized entry and egress as well as ad hoc trading between troops and
the local population.
ID/OIOS, noting that it received only two SEA allegations against the Member
State 3 contingent but did receive many more against the Member State 1
contingent, concludes that MONUC has not sufficiently implemented this
recommendation.
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• Recommendation 7: MONUC should collaborate, perhaps under the auspices
of the Office for the Coordination of Humanitarian Affairs, with other nongovernmental
organizations and United Nations agencies in the Bunia area to
find ways of strengthening the existing programmes to empower and protect
the vulnerable population to allow for alternative means of survival.
ID/OIOS concluded that, despite MONUC’s efforts, the women and children in
Bunia remain vulnerable to sexual exploitation and abuse.
• Recommendation 8: Given that this problem is not unique to MONUC, and with
new missions being opened in areas where similar problems can arise, it is
recommended that the Department of Peacekeeping Operations consider a wider
application of prevention and detection policies to protect against sexual abuse
and exploitation by peacekeepers. This may include the designation of local
officials or non-governmental organizations to receive reports of sexual
exploitation and abuse; the central reporting of all cases to mission senior
management on an expedited basis; the development of mission-based rapidresponse
teams; the development of educational programmes for the troops on
their responsibilities and on sanctions for sexual exploitation and abuse; the
public naming and shaming of those found to have engaged in sexual exploitation
and abuse; and the permanent exclusion from peacekeeping missions of those
troops who engage in sexual exploitation and abuse and of their contingents’
commanders.
ID/OIOS recognizes the complexity of sexual exploitation and abuse issues
within peacekeeping environments and believes that ongoing discussions by
the Department of Peacekeeping Operations, Troop Contributing Countries
and ID/OIOS will result in strengthening relevant policies.
51. The ID/OIOS investigation found that allegations against peacekeepers from the
Member State 3 Battalion could not be substantiated and noted the proactive approach of
the Member State 3 Battalion in preventing opportunities for sexual exploitation and
abuse in Bunia.
52. The ID/OIOS is of the view that the deployment of Member State 1 troops on 30-
day rotations in check points throughout the city of Bunia is conducive to an environment
in which instances of sexual exploitation of the local population are possible. This
situation is further exacerbated by the insufficient attention to implementing preventive
general measures concerning sexual exploitation and abuse opportunities on part of some
Member State 1 military command staff.
53. While only one allegation of sexual exploitation and abuse could be substantiated,
the ID/OIOS’ observations in the course of the investigations indicated that some
Member State 1 peacekeepers deployed in Bunia have frequented prostitutes who are
Congolese girls. While ID/OIOS recognizes the complexity of sexual exploitation and
abuse issues within peacekeeping environments, it concludes that the failure to
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sufficiently and effectively implement the proactive preventive measures recommended
in its previous report (A/59/661) has allowed an environment to persist in which sexual
exploitation and abuse occurs.
54. Given the overall findings of the report, the Organization should consider
peacekeeping operations in Bunia as high risk for further violations of ST/SGB/2003/13.
VIII. RECOMMENDATIONS
Given the findings of this investigation, ID/OIOS makes the following recommendations:
Recommendation 1: It is recommended that the Department of Peacekeeping Operations
and MONUC further implement recommendations 2, 3 and 5 through 8 of ID/OIOS
Report A/59/661. (ID Rec. No. IV05/618/01)
Recommendation 2: It is recommended that the Department of Peacekeeping Operations
advise the Permanent Mission of Member State 1 to the United Nations of the need to
ensure that all Member State 1 military command staff is apprised of the Organization’s
commitment towards a zero tolerance policy of sexual exploitation and abuse. (ID Rec.
No. IV05/618/02)
Recommendation 3: It is recommended that the Department of Peacekeeping Operations
and the Force Commander of MONUC collaborate in reviewing the modalities of
checkpoint deployment of Member State 1 troops in Bunia, such as lengthy assignments
at a single checkpoint, to determine preventive measures aimed at reducing allegations of
sexual exploitation and abuse emanating from current deployment policy. Consideration
should also be given to providing recreational and related welfare outlets for troops. (ID
Rec. No. IV05/618/03)
Recommendation 4: It is recommended that the Department of Peacekeeping Operations
promote in MONUC and other PKOs the preventive measures implemented by the
Member State 3 commanders in Bunia to implement the Organization’s policy of zero
tolerance of sexual exploitation and abuse. (ID Rec. No. IV05/618/04)
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