(2020-02) BINUH - Report of the Secretary-General on the United Nations Integrated Office in Haiti

S United Nations /2020/123 Security Council Distr.: General 13 February 2020 Original: English United Nations Integrated Office in Haiti Report of the Secretary-General I. Introduction 1. The present report is submitted pursuant to Security Council resolution 2476 (2019), by which the Council established the United Nations Integrated Office in Haiti (BINUH) beginning on 16 October 2019 for an initial period of 12 months, and requested me to report on the implementation of the resolution, including any instances of mandate implementation failures and measures taken in response to them, every 120 days from 16 October. The document covers significant developments since the issuance of my previous report on Haiti (S/2019/805), provides an update on the operationalization of BINUH and describes progress in integrating the activities of BINUH and the United Nations country team. 2. The establishment of BINUH marked the end of 15 consecutive years of peacekeeping in Haiti and opened a new chapter in the collaboration between the United Nations and Haiti, based on the full integration of the activities of BINUH and United Nations agencies, funds and programmes. This new configuration draws on the comparative advantage of BINUH conducting strategic advisory, advocacy and good offices efforts in support of inclusive political and governance processes and of the United Nations country team delivering programmatic and technical support. II. Political and good governance (benchmark 1) 3. The political crisis in Haiti continued unabated during the reporting period, notwithstanding efforts to forge consensus to overcome the impasse, epitomized by the wave of civil unrest that gripped the country between September and November 2019 – the longest period of continued protests since the President, Jovenel Moïse, assumed office. The country remained without a Government confirmed by Parliament owing to the ongoing discord between the executive and legislative branches. The situation was compounded by the emergence of a constitutional crisis on 13 January 2020, when the mandates of all members of the Lower Chamber of Parliament, at least one third of Senators and all elected municipal officials expired. Since then, the President has relied on the authority granted under the Constitution to ensure the regular functioning of institutions and the continuity of the State. 4. In the final quarter of 2019, forces across the political spectrum sought to firm up internal consensus on their proposals to overcome the crisis. Those proposals 20-01584 (E) 170220 *2001584* S/2020/123 highlighted convergence on the formation of a consensus Government, the need for a constitutional review and the launch of a national dialogue on structural reforms, but reflected important differences regarding the role of President Moïse during a potential transition period. The “Entente politique de transition” (“Marriott Accord”), signed by key opposition groups on 10 November, included proposals for the appointment of a supreme court judge as provisional President to facilitate a national conference on structural reforms and elections. On 5 December, the ruling coalition, led by the Parti Haïtien Tèt Kale, announced its own proposal, the “Consensus pour une transformation pacifique de la nation haïtienne” (“Kinam Accord”), which foresees a transition led by a consensus Prime Minister appointed by presidential order after consultations with political and civil society stakeholders. The proposal also contains plans for parliamentary elections to be held before the end of 2020 and presidential elections in 2021. 5. Those internal consultations were held within the context of intensified regional and international efforts to encourage the parties to engage in direct talks to devise a solution to the crisis. On 14 October, the Caribbean Community issued a press release in which it offered its good offices. On 8 November, the European Union issued a declaration in which it called for an open and inclusive political dialogue. Several senior diplomats from the United States of America also travelled to Port-au-Prince, including the country’s Permanent Representative to the United Nations, Kelly Craft, on 20 November, the Under Secretary of State for Political Affairs, David Hale, on 6 December and the United States Agency for International Development Administrator, Mark Green, from 12 to 14 December. Each senior diplomat met President Moïse and key Haitian politicians to urge them to engage in an inclusive dialogue. The Secretary-General of the Organization of American States (OAS), Luis Almagro, also expressed his organization’s commitment to dialogue during a visit on 7 January 2020. Nationally, the Haitian Conference of Catholic Bishops issued a Christmas message on 30 November in which it urged the President and opposition figures to agree to “costly concessions” for the collective good of the nation. 6. Since the establishment of BINUH on 16 October, my Special Representative for Haiti and Head of BINUH and her team have used her good offices and the United Nations convening power to encourage a genuine and inclusive dialogue and coordinate a coherent engagement by international actors, notably the Core Group on Haiti, to help to resolve the crisis. In the context of deepening political polarization, she and her team also engaged key sectors of Haitian society, including political forces, civil society, economic actors and faith-based organizations, to de-escalate tensions and create an environment conducive to building consensus on the need for a political agreement to overcome the paralysis. In addition, BINUH convened two exploratory meetings with representatives from the presidency, the ruling coalition, non-aligned actors and the opposition to achieve convergence on views on the objectives and parameters of a political dialogue. Those initiatives were followed by the holding of informal talks between representatives of the President and key political and social constituencies on 17 and 18 December at the representation of the Holy See in Haiti, which were facilitated by the United Nations in collaboration with the Apostolic Nuncio and the Special Representative of the OAS Secretary-General. While those talks constituted important preliminary steps to create political space and build momentum for further dialogue, some representatives of the opposition, most of whom were represented in earlier meetings, did not attend, while others attended only the first day of proceedings. 7. President Moïse also intensified outreach to obtain buy-in for direct talks in order to reach a political agreement to address the institutional vacuum after 13 January. Following the circulation of the proposals of the opposition and the ruling coalition to end the crisis, the President held separate meetings on 16 December 2019 2/23 20-01584 S/2020/123 with the coordinator of the “Comité de suivi de l’Accord du Marriott” and the president of the “Comité de suivi de l’Accord du Kinam” to discuss a peaceful and responsible solution to end the political stalemate. These were followed by meetings on 26 December between the President and several non-aligned opposition representatives who had participated in the talks of 17 and 18 December and a delegation of the “Comité de suivi de l’Accord du Kinam”. The discussions reportedly focused on reform priorities rather than transitional governance arrangements. However, signatories to the Marriott Accord consistently refused to engage with the President. They rejected two invitations for meetings slated for 20 and 27 December, as well as several other informal consultations held throughout January, preconditioning their participation in a dialogue on his resignation. 8. Nevertheless, following three weeks of intense preparatory work facilitated by the United Nations, OAS and the Apostolic Nuncio, a “Conférence politique pour une sortie de crise” was convened from 29 to 31 January at the representation of the Holy See in Haiti. Representatives of the presidency, signatories to both the “Marriot” and “Kinam” accords and members of non-aligned political parties, as well as personalities from civil society and the private sector, participated in constructive negotiations centred on the four central elements of an eventual agreement: defining the criteria for the formation of a new Government, developing a road map for reform, devising a process through which to revise the Constitution and determining an electoral calendar. While the views of conference delegates converged on the development of a road map for reform and a constitutional revision process, further talks will be needed with respect to the criteria for the formation of a Government and the electoral calendar. President Moïse, as well as most of the participants, indicated interest in resuming negotiations to finalize an agreement. 9. Those developments have significantly increased uncertainty over the electoral process. The parliamentary and municipal elections originally slated for 27 October 2019 have been postponed indefinitely. The draft electoral law introduced in Parliament on 14 November 2018 is pending adoption, while the members of the Provisional Electoral Council appointed on 29 March 2016 remain in office in the absence of consensus on the nomination of the members of the Permanent Electoral Council. Progress towards a new voter registry is also generating concern as registrations for the new biometric national identity cards, which will be used to build the voter registry for future elections, proceeded at a slow pace, owing in part to the political situation. As at 16 December, of a projected 7 million eligible voters, only 1 million had registered with the Office for National Identification and 500,000 cards had been distributed. In this context, the Provisional Electoral Council focused on strengthening institutional and staff capacity. With support from the United Nations Development Programme (UNDP) and the International Foundation for Electoral Systems, the Provisional Electoral Council is implementing an eight-module training entitled “Building resources in democracy, governance and elections”. Since September, 69 electoral staff have been trained in strategic and financial planning, political financing, and gender and accessibility in electoral processes. The United Nations Entity for Gender Equality and the Empowerment of Women (UN-Women) and UNDP also continued support to the National Federation of Women Mayors and Local Elected Officials in increasing women’s political participation. While the Constitution of Haiti mandates a minimum quota of 30 per cent of women in Government, the ratio of women parliamentarians in the former Legislature (1 woman senator and 3 deputies among 149 representatives) ranked among the lowest in the world. 10. Political polarization also continued to affect governance. On 18 October, the Office of Monetization of Development Aid Programmes ordered private electricity provider Sogener to reimburse $223 million to the Haitian State, including 20-01584 3/23 S/2020/123 $194 million allegedly embezzled from the PetroCaribe funding scheme between June 2012 and March 2019. On 23 October, the Council of Ministers issued two resolutions by which it suspended payments on State contracts with three private electricity providers, namely, Sogener, E-Power and Haytrac, and eliminated all relevant customs exemptions. The Government subsequently filed a complaint against Sogener for criminal acts supporting private enrichment at the expense of the State, corruption and fraud. It also seized the company’s power generating facility in Cité Soleil (West Department) and froze the bank accounts of several of its directors. Those developments prompted widespread criticism by segments of the opposition and the Association des industries d’Haïti, the Chambre de commerce et d’industrie and the Chambre franco-haïtienne de commerce et d’industrie, which denounced the “instrumentalization of the judiciary for political purposes”. III. Community violence reduction (benchmark 2) 11. Haiti continues to face high and rising levels of violence, including common criminality, kidnappings, hijackings, robberies and violent attacks by heavily armed gang members. The number of reported intentional homicides increased by 42 per cent in 2019, compared with the previous year, with 910 recorded cases involving 1,081 victims (including 61 women), a ratio of 9.34 per 100,000 citizens, up from 6.67 for 2018 and 7.91 for 2017. Two thirds of those of those homicides were recorded in West Department, where criminality is traditionally more prevalent. In addition, 42 police officers were killed in 2019, a 147 per cent increase, compared with 17 in 2018, and the highest number since the inception of the Haitian National Police in 1995. Moreover, 31 of 348 police stations were vandalized countrywide (including 8 facilities set ablaze), compared with 7 recorded incidents in 2018. In most cases, the damage was caused by angry mobs in retaliation for alleged police wrongdoing. During the reporting period, 16 criminal incidents affected United Nations personnel, resulting in no casualties. In addition, one BINUH independent contractor was shot and killed on 1 December while leaving a bank in Port-au-Prince. 12. Sexual and gender-based violence remains prevalent but underreported. In 2019, 227 cases were reported to the police, compared with 418 in 2018. This 45 per cent decrease is attributable to severe underreporting due to heightened stigma and risk of retaliation against victims, in particular in the current security and political context. To raise awareness of the situation, the United Nations supported activities organized by national counterparts in the context of the 16 Days of Activism against Gender- based Violence campaign launched in November. In addition, the national police sex crimes unit is developing a database of sexual assault complaints that would improve case processing and provide easier access to countrywide statistics. 13. The political crisis added another layer of complexity to the security situation. Between 1 September and 30 November 2019, the United Nations documented at least 1,341 demonstrations, roadblocks and barricades. At the height of the mobilization in late September, protests turned violent and the presence of heavily armed individuals was observed in the streets, especially in the urban centres of West, Artibonite, South and North Departments. Those developments led to significant restrictions on movement for the United Nations, hampering operations throughout the country. Attesting to the challenges of maintaining public order, the national police reported, during a press conference held on 19 December, having carried out 2,536 interventions to clear roads between 1 September and 30 November. 14. The prolonged political standoff, aggravated by the ensuing economic downturn, has created an enabling environment for gang-related violence. The most recent wave of public protests in Port-au-Prince and other major cities, which endured 4/23 20-01584 S/2020/123 throughout the fall, lasted longer and appeared to be better organized and more violent than the 2018 demonstrations against corruption and rising fuel prices. Reports suggested increasing gang involvement in the protests, mobilizing protesters and contributing to violent escalation, amid recurrent allegations of collusion between specific gangs and political representatives. Throughout October and November 2019, sightings of armed individuals manning roadblocks and barricades, including known gang members, were reported. As protests lost momentum in late November, crime levels remained high, while inter-gang violence resumed and intensified. The commune of Cité Soleil (West Department) was particularly affected, as the killing of a prominent gang leader on 28 November prompted clashes for territorial control between rival gangs and ended an informal truce that appeared to have prevailed since September, during the height of the protests. 15. In response to the rising climate of insecurity, the Superior Council of the Haitian National Police held four extraordinary meetings during the reporting period, including one on 26 October 2019 chaired by President Moïse, to identify measures to address criminality and street violence. As a result, intelligence-led anti-crime police operations were conducted in several gang-controlled areas throughout the country, after joint public works and specialized police units had removed roadblocks and burning tires from the main roads in order to reopen them. The Haitian National Police also intensified patrols countrywide in December, including in strategic hotspots such as National Road 1, to the north, and National Road 2, to the south. 16. The Director General ad interim of the Haitian National Police reassigned middle- and upper-level managers to improve police operations. Under his leadership, the national security plan for the 2019 holiday season yielded positive results, as the national police carried out 20 anti-gang operations resulting in the arrest of 62 suspected gang members and prominent leaders. Several of those operations took place in West Department as part of enhanced security measures to combat the cross- border smuggling of weapons and ammunition. The resolve of the national police to manage public safety throughout the country, notwithstanding the challenging context, attests to its increasing capabilities and professionalization. In recent months, BINUH has focused on supporting national counterparts in addressing institutional, policy and procedural challenges in law enforcement, including by providing advice at the managerial level to improve deployment plans, compliance with procedures and coordination between specialized units in anti-gang operations. 17. As a result of the reconfiguration of the United Nations presence in Haiti, BINUH and the United Nations country team are progressively integrating their advisory and programmatic activities on community violence reduction. In line with its advisory role, BINUH is focusing on supporting the re-established National Commission for Disarmament, Dismantlement and Reintegration as the main coordination body for planning and implementing community violence reduction initiatives in Haiti. BINUH and UNDP facilitated a foundational workshop, held from 25 to 29 November 2019, on the new national strategy for disarmament, dismantlement, reintegration and community violence reduction. BINUH shared the preliminary lessons learned from the implementation of programmatic activities under the United Nations Stabilization Mission in Haiti (MINUSTAH) and the United Nations Mission for Justice Support in Haiti (MINUJUSTH) to guide the development and implementation of community violence reduction projects by the National Commission and the United Nations country team. Subsequently, a draft outline of the national strategy was circulated among national and international stakeholders for consultation. Two other sessions, with civil society on 27 December and United Nations partners on 7 January 2020, were held to integrate input early in the drafting process and to raise the National Commission’s profile. The new strategy is expected to be launched in the summer of 2020. BINUH is also engaging international partners 20-01584 5/23 S/2020/123 to map bilateral community violence reduction initiatives early in 2020 to support coherence between stakeholders and strengthen the National Commission’s coordination efforts. 18. The ongoing support of BINUH to the National Commission for Disarmament, Dismantlement and Reintegration also included follow-up throughout the reporting period on the recommendations of the joint technical assessment mission to Haiti on weapons and ammunition management conducted by the Department of Peace Operations and the Office for Disarmament Affairs from 26 August to 6 September. The National Commission and BINUH agreed to coordinate efforts to amend the draft arms control legislation to address identified technical shortcomings and clarify institutional roles. A forthcoming Peacebuilding Fund project worth $1.07 million, to be implemented by the International Organization for Migration and UNDP, will support the revision process and the development of a national regulatory framework for weapons and ammunition management, the strengthening of the ability of the Haitian National Police to control and register illegal weapons in cooperation with the National Commission and coordination among national institutions responsible for controlling firearms and ammunition in border areas. 19. Between 16 October and 15 December, BINUH, along with the United Nations Office for Project Services, UNDP and national non-governmental organizations (NGOs), concluded six residual MINUJUSTH projects. Five projects consisted of cash-for-work initiatives involving more than 2,389 beneficiaries, including 612 women, working on the rehabilitation of canals, roads and public spaces in Martissant, a populous neighbourhood of Port-au-Prince. The sixth project consisted of a socioeconomic study on areas affected by community violence in Port-au-Prince to inform evidence-based advisory activities. IV. Security and the rule of law (benchmark 3) 20. The political crisis also adversely affected the functioning of the justice system, in that it further hampered progress on judicial and legal reforms, given that no new laws were enacted by Parliament, including on the Criminal Code and the Code of Criminal Procedure. A six-week suspension, from the end of October to the second week of December, of hearings before courts of first instance and courts of appeal due to insecurity further limited access to justice, especially for vulnerable groups. Between 17 and 29 October, protesters ransacked courts in Aquin (South Department), Léogâne and Petit-Goâve (West Department), Miragoâne (Nippes Department), Port-de-Paix (North-West Department) and Verrettes (Artibonite Department). A mob also attacked the office of the Aquin public prosecutor. On 26 October, the Haitian National Association of Magistrates called upon its members to cease hearing cases as long as authorities were unable to secure tribunals. Following advocacy from BINUH, security was strengthened at the courthouse in Port-au-Prince to mitigate the impact of street violence on its functioning. Those dynamics contributed to further increasing (from 73 to 75 per cent between 4 September and 1 December) the already alarmingly high number of detainees in pretrial detention. 21. The disruption of supplies caused by the recent unrest further exacerbated already precarious conditions in prisons in Haiti, worsening chronic shortages of food, medication, water and cooking gas. BINUH coordinated with United Nations agencies, funds and programs, NGOs, international partners and national authorities to ensure that Haitian prisons received temporary supplies of food and medications. 22. As at 22 January, the Haitian penitentiary system held 11,024 detainees, including 369 women and 214 juveniles. With a 343 per cent occupancy rate due to 6/23 20-01584 S/2020/123 widespread prolonged pretrial detention, the country’s 18 prisons still fail to comply with both international and national standards, resulting in an average living space of 0.56 m2 per prisoner. Without proper funding from the Government, the prisons face persistent challenges in responding to the growth of the prison population and ensuring the regular provision of essential supplies to meet basic inmate needs owing to funding shortfalls and low staffing levels. 23. In order to prevent the recurrence of incidents such as the riot in the Gonaïves detention facility on 7 and 8 November (see para. 35 below), BINUH continues to support efforts to meet international standards and reduce human rights violations. With good offices and advisory support, BINUH is supporting the Directorate of Prison Administration in implementing best practices and addressing shortcomings in the penitentiary system. The impact of the sociopolitical crisis on the penitentiary system, however, threatens to erode recent gains. 24. Following BINUH advocacy with national authorities on the importance of legal compliance, as at 23 January, the Minister of Justice and Public Security was finalizing the review of a proposed list of 94 convicts under the presidential pardon procedure, 81 of whom had been approved for transmission to the presidency, as a measure to reduce overcrowding in prisons. Likewise, through its good offices, BINUH advocated with various justice institutions for the resumption of court hearings and for measures to address the increase in pretrial detention. As a result, court hearings resumed in December throughout the country and the Minister of Justice and Public Security, in cooperation with justice institutions, launched an operation to address the backlog of cases and overcrowding in prisons. To date, this effort has led to the release of 508 individuals, including 44 women, in pretrial detention in prisons and police stations, where no prisons are operational, across the 18 jurisdictions, according to information received from the Ministry of Justice and Public Security and jurisdictional public prosecutors. In addition, judicial actors agreed to continue to promote the application of the 1927 law on immediate appearance to contain the flow of persons in pretrial detention, as stated in the action plan on prolonged pretrial detention. 25. Amid a challenging context, BINUH and the United Nations country team advisers on police, corrections and justice continued to coordinate their efforts and work closely with national counterparts to advance the rule of law. Police and corrections advisers who had served in MINUJUSTH and who were recruited for BINUH enabled the quick start-up of co-location activities with the national police to help to fill key operational capacity gaps and advise senior police leadership. 26. In addition, gender-sensitive recruitment and training efforts continue to increase the overall strength of the national police. The next class of approximately 650 police cadets (thirty-first graduating class), with at least 12 per cent female representation, could begin basic training in the coming weeks, subject to securing funding for the medical exams of the candidates and other additional costs (such as new firearms) not included in the national budget. At the same time, the nationwide enrolment process of the thirty-second class of recruits is ongoing, with 1,504 applicants, including 343 women. 27. Notwithstanding mounting operational pressures and rising costs, the Haitian National Police budget has not increased since 2017, leaving the institution unable to address serious financial and operational challenges. To fulfil its public safety mandate throughout the national territory, including land and maritime borders, and to effectively manage 18 prisons, the national police requires sufficient, timely funding. While the Government has recently made efforts to address the acute equipment needs of the national police, unless significant additional funding is provided in the national police budget, the plan to grow the force to 18,000 officers 20-01584 7/23 S/2020/123 by December 2021 – equating to 1.51 officers per 1,000 inhabitants (currently 1.33), with 12 per cent female representation – is unlikely to be achieved. 28. Progress was made in the implementation of the 2018 legal aid law, thanks in part to close cooperation with international partners. An acting director for the National Legal Aid Council, the body tasked with overseeing the provision of State- provided legal aid, took up her functions on 2 December. The Council, with international partners that include UNDP and BINUH, developed a plan to implement the law. An initial budget of 20 million Haitian gourdes (approximately $200,000) was allocated by the Ministry of Justice and Public Security for the establishment of legal aid offices in 7 jurisdictions, as announced by the Council on 26 November, while the Justice Sector Strengthening Program of UNDP and the United State Agency for International Development agreed to support the opening of offices in the remaining 11 jurisdictions. 29. Building on progress achieved during the peacekeeping period, UNDP organized a workshop from 26 to 28 November for 28 staff, including 8 women, from the judicial inspection unit and other relevant teams of the Ministry of Justice and Public Security. The workshop was intended to enhance the analytical and reporting skills of staff and strengthen their ability to implement each step of the judicial inspection process. Notwithstanding that progress, the Inspectorate of the Superior Council of the Judiciary has been without a director for a year, owing in part to inadvertent delays in the vetting of candidates. Moreover, the presidency has yet to take a decision regarding the reappointment or replacement of 32 judges, including 4 women, whose mandates have ended. Lastly, the anti-corruption unit underwent three changes in director during the reporting period, an instability in leadership that has, in the past, hindered its operational effectiveness. V. Human rights (benchmark 4) 30. BINUH has verified numerous human rights violations and abuses that took place during the unrest between 15 September and 20 November 2019, 63 percent of which were committed in West and Artibonite Departments. Overall, at least 55 individuals were killed and 123 injured by gunshots, while 3 protesters reported ill treatment. Almost all victims, including 8 women, 9 minors and 10 journalists, were killed or wounded by firearms either during the protests, as they were heading home immediately afterwards or during barricade-removal operations. Néhémie Joseph, a journalist reportedly close to opposition circles, was killed on 10 October by unidentified gunmen in Mirebalais (Centre Department). 31. The number of verified cases of human rights violations and abuses attributable to law enforcement authorities is roughly equal to those attributable to armed civilians. While the police used non-lethal weapons, such as tear gas and rubber bullets for crowd control, there were instances in which firearms with live ammunition were also used by the national police during the protests and barricade- removal operations. 32. To date, the General Inspectorate of the national police has received 25 reports of alleged human rights violations linked to the demonstrations. These reports represent almost half of the 52 allegations of human rights violations that it received between July and November 2019. Of the 20 reports related to the unrest, 3 investigations were closed. The General Inspectorate recommended the dismissal of two officers, who were transferred for judicial prosecution, and one concluded with the suspension of a third officer for three months without pay. Investigations continue in the other cases. BINUH supported efforts by the General Inspectorate to familiarize relevant staff with the newly developed database to enhance the tracking and analysis 8/23 20-01584 S/2020/123 of cases, including through training given from 9 to 13 December on how the database could enhance accountability. 33. Amid the protracted unrest, local authorities are alleged, in some instances, to have sought support from criminal gangs to lift the barricades, while pro-opposition officials are thought to have attempted to secure similar support to maintain them. In one documented case, members of the “Aji Vit” gang, reportedly ordered by a regional delegate, attacked pro-opposition supporters during a protest in Cap-Haïtien (North Department) on 27 September, resulting in at least seven individuals injured by gunshot. Subsequently, criminal gangs attacked the Port-au-Prince neighbourhood of Bel Air from 4 to 6 November after residents had refused to remove barricades. The gangs were led by the “Delmas 6” gang leader and former national police officer, Jimmy “Barbecue” Cherizier, who is the subject of an outstanding warrant for his previous involvement in violent attacks in La Saline (see S/2019/198). The initial attack led to clashes with off-duty national police officers residing there and resulted in the death of three individuals, including one gang leader; five injured, including one female minor; and approximately 30 residences and 11 cars destroyed. The incidents are another example of the multipronged impact of the political crisis and highlight its systemic relations with political and gang-related violence, as well as protection concerns. A judicial investigation has been opened in the case, as well as investigations by the General Inspectorate of the Haitian National Police into the lack of intervention from law enforcement during the attacks, the alleged involvement of three serving police officers alongside the Delmas 6 gang and the murder of Cherizier’s cousin by off-duty police officers in retaliation. Throughout November, gangs sporadically launched attacks in Bel Air while residents lived in fear. 34. Political tensions during the unrest were likely exacerbated by polarizing messages, including incitement to violence, broadcast nationally over radio programmes by both opposition and government supporters. At least seven programmes on Radio Zenith in November transmitted explicit calls to violence, including exposing journalists to threats, intimidation and violence and inciting the population to burn State buildings. At least two incidents of incitement to violence were also recorded: one by a Government official and the second, by a Parti haïtien Tèt Kale militant, including calls to vandalize premises associated with opposition representatives. 35. Deteriorating detention conditions triggered a mutiny in the Gonaïves detention facility on 7 and 8 December, which left one inmate dead, three injured and some prison records destroyed. Ten female detainees, from 15 to 63 years of age, were gang-raped by male inmates during the incident. Seven of the 10 women had been in pretrial detention, including one for 12 years. Security forces intervened and regained control of the facility only on 8 December. Investigations have been opened into the incident, including on the delayed response from law enforcement. 36. Since my last report, judicial proceedings on emblematic cases such as the La Saline and Grand Ravine killings have made little progress. With regard to La Saline, 11 accused remain in detention pending trial, but the arrest warrant against Jimmy Cherizier, who has since been involved in the November attacks in the Bel Air neighbourhood of Port-au-Prince, has not been executed. This lack of judicial action fosters an enabling environment for additional human rights violations to occur, as illustrated recently by the violence in Bel Air. 37. In a significant development, the national action plan for human rights was validated on 13 December by partners, including representatives of civil society and the national human rights institution. The action plan for the period 2019–2021, which is now set for endorsement by the executive, is intended to implement recommendations issued during the 2016 universal periodic review of Haiti. To help 20-01584 9/23 S/2020/123 to implement the action plan, the national human rights institution has developed a strategy for 2019–2024 and other new tools, including a monitoring and reporting system through a new database, with support from BINUH. 38. Civil society remained vocal throughout the reporting period, notwithstanding the ongoing political polarization. BINUH supported the celebration of International Human Rights Defenders Day to honour civil society achievements and to call for a protection framework for human rights defenders and journalists. After two years of consultations, on 26 November, civil society adopted its strategic plan on transitional justice and past crimes. The plan focuses on identifying entry points to advance transitional justice in Haiti, including truth-seeking mechanisms, recognition and guarantees of non-repetition. VI. Unemployment, youth and other vulnerable groups (benchmark 5) 39. The protracted political crisis took a severe toll on the economy of Haiti, with gross domestic product contracting by 0.9 per cent during the 2018/19 fiscal year. This negative rate is attributable to the poor performance of the agricultural and service sectors. Moreover, the gourde depreciated by 22 per cent against the United States dollar in 2019, and inflation reached 20 per cent by the end of the fiscal year. The purchasing power of households, especially the poorest, was significantly affected. Furthermore, fiscal revenue remained weak, with total revenue collection down 4.3 per cent from 2017/18. As a result, the outlook for the Haitian economy is bleak, with the World Bank forecasting that it will further contract in the coming two years, by 1.4 per cent in 2020 and 0.5 per cent in 2021. In this context, the creation of decent employment, to lift people out of poverty and provide meaningful alternatives for young people and other vulnerable groups, remains a critical challenge. 40. Recent political unrest further undermined living and working conditions in Haiti, especially for the most vulnerable, restricting social and livelihood activities in Port-au-Prince and other urban centres and leading to the closure of many businesses in urban area between September and November 2019 and thus to the loss of jobs and incomes for many. Overall, the private sector was affected by the insecurity and falling demand, and many businesses were the victim of vandalism and looting. In addition, throughout the country, some 3 million children were unable to go to school for three months, compounding the problem of some 500,000 children of school age who are out of school, making them vulnerable to gang recruitment and violence. Unemployment and underemployment, including of women and young people, is thought to have risen, at a time when opportunities for education, training and entrepreneurship for young people and members of other vulnerable groups have not expanded. 41. Building on its work to date, the United Nations country team will scale up its efforts in these critical areas. To expand the number of manufacturing jobs in Haiti, the International Labour Organization (ILO) is training and providing technical support to national and international textile companies and promoting national investment in textile infrastructure, in addition to conducting inspections of companies to verify decent working conditions to ensure that they maintain eligibility to gain access to preferential markets. UNDP is also working with women-headed businesses in Port-au-Prince to ensure that women gain access to the resources and opportunities necessary to support their transition into the formal market. 10/23 20-01584 S/2020/123 VII. Basic social service delivery and resilience (benchmark 6) 42. Key social indicators in Haiti remained a cause for alarm, as the population, especially women and girls, grew increasingly vulnerable. Roadblocks and violence created serious difficulties for people to gain access to food, drinking water, medicine and medical services, and fuel, in particular outside the capital and in the poorest communities. An already weak health sector, as reflected in stagnant child mortality rates and the highest maternal mortality rate in the Latin America and Caribbean region, was hit particularly hard, with shortages of electricity, fuel and supplies and obstructions for medical personnel to reach their workplace. Against this backdrop, in January, the Government of Haiti, with support from the World Food Programme (WFP), the United Nations Children’s Fund (UNICEF) and ILO, finalized its new national social protection and promotion policy, which is intended to reduce poverty and inequality by stimulating demand for basic services and increasing community resilience to shocks through social protection mechanisms. 43. Food insecurity was further exacerbated in 2019 by increased commodity prices and the gourde’s depreciation, while the effects of the 2018–2019 drought led to a 12 per cent decline in agricultural production. According to the Integrated Food Security Phase Classification report of October 2019, 3.7 million Haitians were food insecure (over 1 million more people than previously projected), including 1 million in a situation classified as an emergency, while a recent national nutrition survey identified that 2.1 per cent of children were affected by severe, acute malnutrition. Owing to challenges with access to the regions during the crisis, humanitarian agencies and NGOs relied on alternate means of transport to reach populations in need. WFP established a United Nations Humanitarian Air Service temporary operation in November 2019, with $1 million from the Central Emergency Response Fund. 44. The capacity of Haitian households to cope with recurrent shocks is very limited, and humanitarian assistance remains a lifeline for many. The funding requirements for the 2020 Humanitarian Response Plan doubled, compared with the 2019 one. They now stand at $253 million. Some 4.6 million Haitians, or approximately 40 per cent of the population, require urgent humanitarian assistance. A total of 2,000 metric tons of emergency food stocks prepositioned in Haiti for distribution through WFP were released in November 2019, and 2,200 additional metric tons of food from the regional WFP emergency stock were released the following month. Those contributions came in addition to the current $20 million in emergency food assistance provided by the agency and distributed to the most food- insecure by humanitarian actors on the ground. Urgent action is required to respond to these humanitarian needs, and work should be undertaken concurrently to address structural vulnerabilities and development deficit. 45. The last confirmed case of cholera was recorded in early in February 2019, more than one year ago. Since then, all 681 suspected cases tested were negative. As suspected cases decrease, the number of rapid response teams, which have helped to eliminate transmission, continues to be reduced. Nevertheless, the United Nations continued to prioritize surveillance, response, prevention and coordination. Given this progress, the United Nations is reviewing its support for the national elimination plan to strengthen the surveillance system and laboratory capacity; support coordination; raise awareness in communities; and encourage prevention, including through water, sanitation and hygiene efforts. 46. Ten years after the earthquake of 12 January 2010, which killed well over 200,000 people, including 102 United Nations staff members, and left 1.5 million people homeless, Haiti remains extremely vulnerable to natural disasters and climate- 20-01584 11/23 S/2020/123 related threats. The United Nations continued efforts to strengthen the country’s resilience in that regard. With combined support from UNEP, UNDP, FAO and UNESCO, the Ministries of Environment and of Agriculture began work at the national and regional levels on climate-resilient strategies and disaster-risk reduction plans. A joint programme by UNDP, UN-Women and UNESCO on human security and disaster risk management supported the Directorate of Civil Protection to help 30,000 families to develop family emergency plans for several cities at high risk of natural disasters, including Les Cayes (South Department), Jérémie (Grand-Anse Department), Cap-Haïtien (North Department), Fort-Liberté and Ouanaminthe (North-East Department). In addition, FAO provided training and technical support to 10 civil protection committees in Grand-Anse Department to prepare risk and disaster management plans related to the agricultural sector, while UNICEF carried out training and simulations with Haitian water authority and civil protection bodies in Grand-Anse and South Departments to enhance disaster risk reduction and emergency preparedness, and prepositioned emergency stocks in the capital and six other locations, to ensure rapid response for some 50,000 people. Furthermore, in January 2020, the Government of Haiti, with support from WFP, UNICEF and ILO, finalized its new national social protection and promotion policy, which is intended to reduce poverty and inequality by stimulating demand for basic services and increasing community resilience to shocks through social protection mechanisms. VIII. Transition 47. The second phase of the BINUH start-up process concluded successfully on 15 October 2019. During the third phase, which ran from the establishment of BINUH through 31 December, BINUH assumed responsibility for planning and operations and established full operational readiness. By 22 January 2020, BINUH had managed to onboard 83 per cent of staff, with a gender ratio of 56 per cent men and 44 per cent women, including four of seven senior leadership positions filled by women. Efforts to reach overall gender parity continue in the recruitment for the remaining positions. 48. As mandated by the Security Council in its resolution 2476 (2019), BINUH and the United Nations country team jointly initiated work on an integrated strategic framework to identify the United Nations key areas of intervention in Haiti, with a focus on stability. A draft framework that incorporates the new benchmarks for Haiti (see S/2019/805) was prepared in late January 2020. The document is expected to be finalized in February. 49. The United Nations country team and BINUH had planned a midterm review of the United Nations Development Assistance Framework 2017–2021, which would have incorporated the key elements of the new integrated strategic framework. However, in order to ensure a fully integrated approach, the framework will be adapted to provide a single, integrated planning document that reflects the most critical objectives and strategies of the United Nations for stability and sustainable development in Haiti. This plan will provide an integrated planning bridge until a new United Nations Development Assistance Framework – now termed the United Nations Sustainable Development Cooperation Framework – is developed and approved, by January 2022 at the latest. 50. During the reporting period, BINUH and the United Nations country team worked closely to refine the indicators for the six Haiti benchmarks and to identify, develop and measure targets and baselines for them, taking into account available data-collection capacities in the country. The benchmarks and resulting set of indicators, targets and baselines, presented in the annex to the present report, may be further refined in connection with the emergence of a political consensus on the 12/23 20-01584 S/2020/123 formation of a new Government and on a road map for national reforms. In addition, the scope of the benchmarks may be further revised to provide more clarity on those that will be used to evaluate the Mission’s progress and those that would apply to a broader country context. Such a process would entail the development of a theory of change to link the two sets of benchmarks. 51. Other initiatives are under way to ensure full integration of the activities of BINUH and the United Nations country team. The Deputy Special Representative of BINUH will continue to carry out the roles of Resident Coordinator and Humanitarian Coordinator, ensuring that the United Nations peace and security, development and humanitarian pillars in-country remain aligned. 52. In addition, a service-level agreement was signed with UNDP for shared office premises to accommodate the co-location of the joint judicial reform team. Preliminary co-location arrangements were also in place for the joint electoral and joint disarmament, dismantlement and reintegration and community violence reduction teams, with final arrangements expected in the first quarter of 2020. 53. Lastly, by significantly reducing the distance and travel time between offices, the relocation of BINUH headquarters will also facilitate integration and coordination with the country team and other key partners. To this end, the selection of suitable office premises in Pétion-Ville is in the final stages of procurement and, security conditions permitting, the relocation of BINUH substantive staff to the new headquarters should begin in March 2020. The move will also enable BINUH to operate within the approved 2020 budget allocation by leveraging more cost-effective outsourced service contracts for service delivery, while reducing its footprint. 54. To ensure the sustainability of the previ