The panel has called on the United Nations Security Council to refer Myanmar to the International Criminal Court or to set up an international tribunal to prosecute those, including the army chief, who have been identified as responsible for the violence. It also urged the Security Council to introduce an arms embargo on Myanmar and to impose targeted sanctions on individuals, including travel bans and asset freezing.

“Any engagement in any form with the Tatmadaw, its current leadership and its businesses is indefensible,” the panel said, referring to the military.

Unusually for a human rights investigation, the report called for an overhaul of the military and for constitutional changes to end the political dominance of generals. The panel said that Tatmadaw leaders should be replaced, the military placed under civilian oversight, and the generals’ grip on Parliament abolished.

“We see accountability as essential but not sufficient,” Christopher Sidoti, a member of the panel, told the rights council, urging fundamental change to Myanmar’s Constitution.

The transition from military rule to a civilian-led government, which allowed the Nobel laureate Daw Aung San Suu Kyi to become the de facto head of state, ground to a halt and even regressed after she took office, he remarked later to reporters.

“Democracy can’t be built on a foundation of genocide, crimes against humanity and war crimes,” he said.

At least 750 villagers were killed in the attack on Min Gyi, the panel said. At least 10,000 people were killed in clearance operations lasting more than two months, it reported, drawing on 875 interviews with victims and witnesses from a range of ethnic groups and religious backgrounds. Satellite imagery showed that 40 percent of the villages in northern Rakhine had been totally or partly destroyed.