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

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

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

It’s the latest effort by Francis to respond to the global 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 nuns to tell church authorities when they learn or have “well-founded motives to believe” 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 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 law that victims cannot be silenced, that clergy must obey civil reporting requirements where they live, and that their obligation to report to the church doesn’t interfere with that.

The victims group Ending Clergy Abuse said the Vatican shouldn’t hide behind the argument that mandatory reporting to police is a problem in some countries.