In July 1994, the Security Council authorized the deployment of a 20,000-strong multinational force to facilitate the prompt return of the legitimate Haitian authorities, maintain a secure and stable environment in the country and promote the rule of law. The multinational force was followed by a number of successive United Nations peacekeeping missions from 1994 to 2001, including UNMIH which assumed its functions in full in March 1995, the United Nations Support Mission in Haiti (UNSMIH), the United Nations Transition Mission in Haiti (UNTMIH) and the United Nations Civilian Police Mission in Haiti (MIPONUH).

Throughout this period, there were a number of positive developments, including the restoration of some measure of democracy, with the first peaceful handower of power between two democratically elected presidents; the growth of a multifaceted civil society; and its increasing involvement in the development of a political culture based on democratic values. There were, however, also setbacks. Owing to the continuing political crisis and concomitant lack of stability in the country, serious reforms never took hold.

In the 2000 presidential and parliamentary elections, President Jean-Bertrand Aristide and his Fanmi Lavalas party claimed victory with a turnout that hardly rose above 10 per cent of the voters. The opposition, as well as members of the international community, contested the results and accused the Government of manipulating them. Subsequently, dialogue between the Government and the opposition broke down. By late 2003, a newly united opposition movement, comprising political parties, civil society actors as well as the private sector, was calling for the President’s resignation. The Caribbean Community (CARICOM) offered to mediate and, on 31 January 2004, submitted a Prior Action Plan, followed in February by an implementation plan worked out by the Group of Six, involving the Bahamas for CARICOM, Canada, the European Union, France, the Organization of American States (OAS) and the United States. Both of these plans were agreed to by President Aristide. The Prior Action Plan had called for major reforms, including a new cabinet, while allowing President Aristide to serve out his term. However, the opposition refused to back the plan. Several diplomatic initiatives, spearheaded by CARICOM and the OAS, were subsequently taken with a view to overcoming the political stalemate and preventing a further deepening of the political crisis.

In early February 2004, armed conflict broke out in the city of Gonaives, and in the following days fighting spread to other cities. Gradually the insurgents took control of much of the northern part of the country. Despite diplomatic efforts, the armed opposition threatened to march on the Haitian capital. Early on 29 February, Mr. Aristide left the country. His letter of resignation was read out by the Prime Minister, Yvon Neptune. Within hours, Boniface Alexandre, the President of the Supreme Court, was sworn in as interim President, in accordance with the constitutional rules of succession. On the evening of 29 February, the Permanent Representative of Haiti to the United Nations submitted the interim President’s request for assistance, which included the authorization for international troops to enter Haiti. Pursuant to that request, the Security Council adopted resolution 1529 (2004) authorizing the Multinational Interim Force (MIF) and declaring Council’s readiness to establish a follow-on United Nations stabilization force to support continuation of a peaceful and constitutional political process and the maintenance of a secure and stable environment. MIF, immediately started its deployment to Haiti, as authorized by that resolution.

In consultation with the interim President and the then-Prime Minister, steps were taken to form a transitional government. On 17 March 2004, the Prime Minister, in consultation with the Conseil des sages (a group of eminent persons), formed a 13-member transitional Government.

In order to build broad political consensus for the work of the transitional Government, a political pact, the Consensus on the Political Transition Pact, was signed by the Prime Minister on behalf of the transitional Government, members of the Conseil des sages, representatives of various political groups and civil society organizations. The signatories came to a general understanding on the political transition, which would see the holding of municipal, parliamentary and presidential elections in 2005 and would end with the installation of a newly elected President. Fanmi Lavalas denounced the Pact.

The Pact also set out measures to be undertaken during the transitional period in the areas of security, development, fight against impunity and corruption, decentralization, elections, judicial reform, a national conference initiative and a new social contract, institutional strengthening of political parties and civil society organizations, reintegration of former armed elements and professionalization of the Haitian National Police (HNP). Additionally, it was agreed to establish a number of commissions to address issues such as recent human rights abuses, financial wrongdoing and matters related to the former military. The Pact emphasized the need to provide assistance to victims of the prior government. The Pact also provided that the signatories would engage in discussions with the United Nations on the status of the MIF and the follow-on peacekeeping operation.

Reporting to the Security Council on 16 April 2004, the United Nations Secretary-General welcomed the Pact that “has brought together many Haitian leaders from different parts of society in order to chart the way forward during the transitional period”. He said, however, that this Pact did not include all major political movements, as it could have, and that all Haitians should have, and seize, the opportunity to participate meaningfully in a comprehensive national dialogue.

As envisaged by Security Council resolution 1529 (2004) and on the basis of the findings of the multidisciplinary assessment team, which visited the country in March 2004, the Secretary-General recommended the establishment of a multidimensional stabilization operation, to be known as the United Nations Stabilization Mission in Haiti (MINUSTAH).

Acting on the recommendations of the Secretary-General, the Security Council adopted resolution 1542 of 30 April 2004, establishing MINUSTAH for an initial six-month period, and requested that authority be transferred from the MIF to MINUSTAH on 1 June 2004.

For further details on the background and the developments in Haiti from June through August 2004, please see Secretary-General’s reports S/2004/300 dated 16 April 2004 and S/2004/698 dated 30 August 2004.

MINUSTAH’s Mandate Extended

Reporting on the situation in Haiti on 18 November 2004 (S/2004/908), just prior to expiration on 30 November of the mandate of MINUSTAH, the Secretary-General described the progress made in the Mission’s deployment since its establishment on 30 April. In view of the time line for elections, scheduled to be held in 2005, with power to be transferred to en elected President on 7 February 2006, the Secretary-General recommended that the Council extend the mandate of the Mission for a further period of 18 months, until 31 May 2006, with some modifications within the general structure.

The Secretary-General said in the report that the time was not yet right for a major review of the Mission’s general structure, as it had not yet fully deployed, the political processes were still in their early stages and the situation in Haiti remained fluid. A number of modifications within the present structure could work, however.

He, thus, proposed the following adjustments: adding an additional formed police unit of 125 officers for an interim period, to be stationed in Port-au-Prince, to provide enhanced operational support to the Haitian National Police and to strengthen security arrangements in the capital; implementing, beyond the Missions’ first year, quick-impact projects of a humanitarian nature; augmenting MINUSTAH’s capacity to implement disarmament, demobilization and reintegration (DDR) projects in the community, and strengthening MINUSTAH’s capacity to monitor and evaluate the legal and institutional framework for DDR, including small arms control and other security sector-related legislation; adding one engineering company to the Mission’s military component, with the task of repairing roads and bridges used by Mission personnel during implementation of their mandate; and strengthening modestly the humanitarian and development coordination pillars of MINUSTAH, in light of Haiti’s vulnerability to natural disasters.

The Secretary-General said that since his interim report of 30 August, the security situation in Haiti had deteriorated with a surge in violence, particularly in the capital in October. He appealed to all armed groups to break this cycle of violence in order not to further endanger the transition process under way. As MINUSTAH troops and police personnel continued to build up their strength, the Mission’s capacity to ensure a secure and stable environment would increase.

The Secretary-General supported the Transitional Government’s efforts to put an end to the violence perpetuated by armed groups and welcomed the establishment of an office, which would seek to reintegrate into society the demobilized military. The restoration of law and order throughout Haiti needed to be achieved with due regard for basic human rights and the rule of law, the report stated. In this regard, the Transitional Government, in particular its law enforcement structures, needed to demonstrate a genuine and consistent adherence to human rights and legal principles as it deals with those responsible for the recent violence.

Also according to the report, the recent violence again underlined the need to remove all illegal weapons from the streets effectively, including through a comprehensive and community-based disarmament, demobilization and reintegration programme. While security was a necessary condition for the success of the transitional process, it was not sufficient. Without a parallel political process involving all segments of society, no sustainable peace and security would be achieved. The Secretary-General encouraged the Transitional Government to continue to explore all possible ways to include in the democratic and electoral process those who still remained outside the transition process, but had rejected violence.

The report welcomed the Transitional Government’s sustained commitment to holding local, legislative and presidential elections in 2005. At the same time, the Provisional Electoral Council was encouraged to remain focused on its tasks within the agreed time frame. The Secretary-General welcomed the signing of the memorandum of understanding with the Organization of American States and was confident that, together, the organizations would strive to accompany the Haitians towards elections in the most efficient way. He was also grateful for the assistance that the International Organization of la Francophonie and other international organizations, agencies, and donors were providing. The support that members of Caribbean Community (CARICOM) could provide to the electoral process in Haiti would add a significant dimension to regional cooperation efforts there.

A political process without job creation or longer-term development was not credible for a population that had been living in severe poverty for such a long time, the report stated further. MINUSTAH remained committed to mobilizing resources for projects that make an immediate difference in people’s lives. The Secretary-General welcomed the establishment of coordination mechanisms aimed at aiding implementation of the interim cooperation framework, which had received overwhelming support from international donors at the International Donors Conference on Haiti, held in Washington, D.C., on 19 and 20 July 2004.

On 29 November 2004, by resolution 1576, the Security Council, noting the continuing existence of challenges to the political, social and economic stability of Haiti and determining that the situation continued to threaten international peace and security in the region, extended the mandate of MINUSTAH until 1 June 2005, with the intention to renew it for further periods. The Council welcomed the Secretary-General’s report on the situation in Haiti and endorsed his recommendations.

For the developments in Haiti from December 2004 through February 2005, please see Secretary-General's report S/2005/124 dated 25 February 2005 .

MINUSTAH Temporarily Reinforced

In his further report to the Security Council on MINUSTAH dated 13 May 2005 , the Secretary-General stated that over the past few months, MINUSTAH had made progress towards creating an environment in which the political transition could unfold.  This progress remained fragile, however, and key challenges lie ahead as the political transition enters a crucial phase.  Further outreach by the Transitional Government was essential to obtain the confidence and support of the population.

Likewise, strong and coordinated support by the international community was essential. The Transitional Government and the Haitian people, with the support of the international community, must now redouble their efforts to advance this process.  The visit of the Security Council mission to Haiti from 13 to 16 April, in conjunction with the Ad Hoc Advisory Group on Haiti of the Economic and Social Council, represented an important demonstration of commitment to addressing the needs of Haiti .

According to the Secretary-General's report, there were signs of improvement in the security situation following successful operations by MINUSTAH and the Haitian National Police, with a view to curbing the activities of illegal armed groups and reducing their activities.  These efforts must be maintained, to eliminate potential threats to the approaching electoral process.

However, the Secretary-General said, unless real progress was achieved in the disarmament, demobilization and reintegration programme, the security situation would remain uncertain.  He urged the Transitional Government to ensure the prompt implementation of a comprehensive disarmament, demobilization and reintegration programme.  He also urged the international community to help secure the necessary funds to successfully implement the programme.

The launching of the electoral process and the national dialogue was a welcome development.  The Secretary-General encouraged all Haitian citizens to participate fully in both processes as an important step towards consolidating democracy in Haiti .  The Transitional Government needed to do more to secure broad participation in these processes, and to ensure that legislation conducive to such participation is in place.  He called on the Transitional Government to address the concerns raised regarding the electoral law, so as to maintain the independence of the Electoral Council and to create an even playing field for all the candidates.  Political leaders in Haiti had a special responsibility to ensure the success of both the national dialogue and elections.

The Transitional Government and the leaders of political parties and civil society must also ensure that these processes were sustainable and result in a realistic and achievable vision for the future of Haiti , the first step being the installation of an elected government.  The Secretary-General urged the international community to redouble its efforts to support the electoral process in Haiti , and in particular called on the donor community to ensure that the necessary financial means were available.  He welcomed the offer of the Caribbean Community (CARICOM) to provide technical assistance to the electoral process.

The human rights situation and the impunity enjoyed by those who commit violations of human rights remained a deep concern, the report stated.  There was an urgent demand for justice in Haiti .  The Secretary-General appealed to the Transitional Government to set the example by promptly initiating an investigation into those human rights violations allegedly committed by national police officers.  The State institutions responsible for guaranteeing respect for the rule of law—including the police, the justice and prison systems—remain particularly weak.  Therefore, he encouraged the Transitional Government to explore the practical means by which the international community might provide immediate assistance to expedite some of the most sensitive cases.

The Secretary-General said that furthering the reform of the justice and penal systems should be pursued in parallel to the efforts to professionalize the police. Demonstrable progress in these key areas could be crucial to building the confidence of the Haitian population in its national institutions.  The commitment of the Transitional Government and the police to take the reform forward, as well as to work effectively with MINUSTAH in police operations and reform, also needed to be strengthened.  He urged the Transitional Government to ensure that the technical advice and recommendations provided by the Mission 's UN police officers are implemented by national police officers at all levels.

Concluding the report, the Secretary-General said that the United Nations remained committed to supporting the Transitional Government in its efforts to ensure the success of the political transition.  To enable MINUSTAH to implement its mandate more effectively, the Secretary-General recommends that the Council approve the proposals set out in the report.  The Secretary-General proposed that the Mission deploy an additional infantry battalion of 750 troops to respond quickly in likely “hot spots” during the pre-election period; raise the military ceiling for United Nations troops from the current level of 6,700 to 7,500; and raise the ceiling on United Nations police officers to nearly 1,900, from just over 1,600. He also recommended that the Mission be extended for a further period of 12 months, until after the electoral process and the establishment of the newly elected Government of Haiti.

By resolution 1608 of 22 June 2005 , the Security Council extended the mandate of MINUSTAH until 15 February 2006 , and expressed support for Secretary-General's proposals for temporary reinforcing the mission to help facilitate the country's political transition.

Acting under Chapter VII of the Charter, the Council supported a temporary increase, during the electoral period and subsequent political transition, of 275 personnel to the current strength of the Mission's UN police component, and 750 personnel to its currently authorized military strength in order to create a rapid reaction force in Haiti to provide increased security, particularly in and around Port-au-Prince.  [Local elections are scheduled for 9 October, and the first round of presidential and parliamentary elections for 13 November.]

The Council also decided that, for a temporary period, MINUSTAH would consist of a military component of up to 7,500 troops of all ranks and of up to 1,897 UN police. It requested the Secretary-General to devise, in a timely manner, a progressive drawdown strategy of the MINUSTAH force levels for the post-election period, in accordance with the situation on the ground.

In addition, the Council requested the Secretary-General to share with the Council the overall plan for the successful holding of elections in Haiti, including voter registration, security, logistics, civic education, observation, and detailed budget information.  It urged Haitian authorities to increase and accelerate efforts to prepare for and ensure the smooth conduct of the elections, and called on international donors to provide the necessary resources to support the electoral process.

Furthermore, the Council urged the Transitional Government to conduct thorough and transparent investigations into cases of human rights violations.  It also urged the Transitional Government and MINUSTAH to begin immediately effective implementation of the disarmament, demobilization and reintegration programme, and called on all Member States to provide timely financial, human and technical resources in support of that programme.