VATICAN CITY — Pope Francis issued a groundbreaking new church law Thursday requiring all Catholic priests and nuns around the world to report clergy sexual abuse and cover-up by their superiors to church authorities, in a new effort to hold the Catholic hierarchy accountable for failing to protect their flocks.

Abuse victims and their advocates said it was a step forward, but not enough since it doesn’t require the crimes to be reported to police and essentially tasks bishops discredited for mishandling abuse for decades with policing their own.

The new law provides whistle-blower protections for anyone making a report and requires all dioceses around the world to have a system in place to receive the claims confidentially. And it outlines procedures for conducting preliminary investigations when the accused is a bishop, cardinal or religious superior.

It’s the latest effort by Francis to respond to the global eruption of the sex abuse and cover-up scandal that has devastated the credibility of the Catholic hierarchy and his own papacy. And it provides a new legal framework for U.S. bishops as they prepare to adopt accountability measures next month to respond to the scandal there.

“People must know that bishops are at the service of the people,” said Archbishop Charles Scicluna, the Vatican’s longtime sex crimes prosecutor. “They are not above the law, and if they do wrong, they must be reported.”

The decree requires the world’s 415,000 Catholic priests and 660,000 religious sisters to inform church authorities when they learn or have “well-founded motives to believe” that a cleric or sister has engaged in sexual abuse of a minor, sexual misconduct with an adult, possession of child pornography — or that a superior has covered up any of those crimes.

It doesn’t require them to report to police, however. The Vatican has long argued that different legal systems in different countries make a universal reporting law impossible, and that imposing one could endanger the church in places where Catholics are a persecuted minority. But the procedures do for the first time put into universal church law that clergy must obey civil reporting requirements where they live, and that their obligation to report to the church in no way interferes with that.

Abuse survivor David Clohessy dismissed the new set of procedures, saying they remain secretive and internal to the church.

“Until heads roll, until bishops are fired — plain and simple — they’ll continue to ignore and conceal clergy sex crimes,” he said.

If implemented fully, though, the Vatican could well see an avalanche of abuse and cover-up reports in the coming years. The decree can be applied retroactively, meaning priests and nuns are now required to report even old cases of sexual wrongdoing and cover-ups — and enjoy whistleblower protections for doing so.

Previously such reporting was left up to the conscience of individual priests and nuns.

Anne Barrett Doyle of BishopAccountability praised some of the provisions, but said they weren’t enough primarily because there were no provisions to sanction violations and kept the process entirely internal to the church.

“Bishops watching bishops does not work,” she said.

While there are no punitive measures foreseen for noncompliance, bishops and religious superiors could be accused of cover-up or negligence if they fail to implement the provisions, or retaliate against priests and nuns who make reports against them.

The law defines the crimes that must be reported as: performing sexual acts with a minor or vulnerable person; forcing an adult “by violence or threat or through abuse of authority, to perform or submit to sexual acts,” and the production, possession or distribution of child pornography. Cover-up is defined as “actions or omissions intended to interfere with or avoid” civil or canonical investigations.

Cardinal Marc Ouellet, head of the Vatican’s bishops office, said the inclusion of sex crimes involving adults was a clear reference to cases of sexual abuse of nuns and seminarians by their superiors — a scandal that has exploded in recent months following reports, including by The Associated Press and the Vatican’s own women’s magazine, of sisters being sexually assaulted by priests.