INCREASING USE OF STAFF LOANED BY MEMBER STATES TO UNITED NATIONS, TERMED 'GRATIS PERSONNEL', ADDRESSED IN FIFTH COMMITTEE
Press Release
GA/AB/3135
INCREASING USE OF STAFF LOANED BY MEMBER STATES TO UNITED NATIONS, TERMED 'GRATIS PERSONNEL', ADDRESSED IN FIFTH COMMITTEE
19970311 Should Not Be Used to Save Budget Problems, Says ACABQ Chairman; Issues of Gender Balance, Geographical Representation Also DiscussedThe Secretary-General should not use gratis personnel or other voluntary contributions to solve budget and cash flow difficulties to implement mandated operations, the Chairman of the Advisory Committee on Administrative and Budgetary Questions (ACABQ) told the Fifth Committee (Administrative and Budgetary) this morning. Gratis personnel are military and civilian personnel loaned to the United Nations by Member States at no cost to the Organization.
The Committee this morning also considered other issues related to human resources management and the financing of the United Nations Observer Mission in Liberia (UNOMIL).
Speaking as the Committee took up both a Secretary-General and an ACABQ report on the issue of gratis personnel, ACABQ Chairman Conrad S.M. Mselle said "such a practice, in the long run, could distort the international character of the Organization and the equality of Member States". In addition, the Organization's regulations and rules on fair and transparent procedures, as well as the relevant financial regulations and rules governing competitive bidding for goods and services through the United Nations procurement process, could be compromised.
Addressing the same issue, the representative of Canada, also speaking for Australia and New Zealand, said the United Nations should avoid institutionalizing the use of gratis personnel. They should not be used in posts kept vacant for financial reasons and should not permanently occupy positions they were meant to fill only temporarily. Also, the Performance Appraisal System should be applied to such personnel to enhance their accountability.
The United Nations Controller, Jean-Pierre Halbwachs, introduced the Secretary-General's report on gratis personnel, which contains draft guidelines for accepting such personnel in the United Nations.
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Speaking on human resources management, and particularly in response to the report of the Joint Inspection Unit (JIU) on the Organization's recruitment, placement and promotion policies, the representative of New Zealand, also on behalf of Canada and Australia, said: "Our delegations reject the JIU's contention that discrimination against men has been institutionalized in the Secretariat." She added that the claim sounded very much like the complaint of those who "resent" the progress that women were slowly making to improve their status in the Secretariat.
On the same issue, the representative of Cuba, while expressing support for the goal of 50/50 gender balance in the United Nations Secretariat, said the Organization should not promote women just to pursue that goal. The quality of the persons being promoted or recruited should also be considered. When two people were equal, the woman should be given preference.
Addressing the issue of equitable geographical representation and a related JIU report, the representatives of Algeria and Germany said the Committee should consider increasing the number of posts subject to that principle -- from the current 2,700. The representative of the United States, however, opposed any expansion of that range of posts. That figure had been established by the Assembly and could not be extended unilaterally by the Secretariat, she said.
The representatives of Saudi Arabia, Japan, Iran and Italy also spoke on human resources management.
The Assistant Secretary-General for Human Resources Management, Denis Halliday, introduced the Secretary-General's comments on the 6 December JIU report concerning application of United Nations recruitment, placement and promotion policies. JIU Inspector Fatih Bouayad-Agha introduced his Unit's report on the comparison of methods of calculating equitable geographical distribution within the United Nations common system.
The representative of Liberia spoke after the introduction of the reports of the Secretary-General and of the ACABQ on UNOMIL.
Also this morning, the Chairman of the Committee, Ngoni Francis Sengwe (Zimbabwe), expressed the Committee's deep appreciation of the fine work Yukio Takasu had performed as United Nations Controller.
The Committee will meet again at 3 p.m. Wednesday, 12 March, to continue discussing gratis personnel and matters related to review of efficiency of the Organization's administrative and financial functioning.
Committee Work Programme
The Fifth Committee (Administrative and Budgetary) met this morning to continue the first part of its resumed session. It is expected to consider reports on gratis personnel provided by governments and other entities, the financing of the United Nations Observer Mission in Liberia (UNOMIL), and human resources management.
The Secretary-General report on gratis personnel provided by governments and other entities (documents A/51/688 and Corr.1), issued 21 November 1996, notes that the number of gratis personnel -- personnel seconded by Member States and other entities at no cost to the United Nations -- and the scope of the functions entrusted to them have grown significantly over the past few years. The issue raises policy and management issues requiring attention at both the Secretariat and intergovernmental levels, which include the importance of preserving the exclusively international character of the responsibilities of the Secretariat.
The Secretary-General stresses the need to establish uniform policies to guide the acceptance of such personnel and their use throughout the Secretariat. He is, therefore, proposing 11 guidelines for the acceptance of gratis personnel -- elaborated in annex I of the report -- to ensure that all concerned comply with United Nations regulations and rules. They take into account issues such as selection procedure, length of service, remuneration, accountability for breach of duties and obligations and programme support costs.
Based on the analysis of the cost and functions of gratis personnel, the Secretary-General invited the General Assembly to reaffirm the principle that Member States collectively should provide the necessary staffing resources to implement the United Nations programmes and activities as decided upon by legislative bodies and to note the conditions and guidelines under which gratis personnel may be accepted by the Secretary-General. The Assembly is also invited to reaffirm the policy that the acceptance of gratis personnel cannot involve, directly or indirectly, additional financial liability for the Organization.
The report notes "the present environment of increasing demands coupled with growing budgetary constraints, leading programme managers to seek and accept offers of gratis personnel in order to offset declining authorized resources in the implementation of the approved work programme". In view of growing resource constraints, it would not have been possible for the Secretariat, without the support of gratis personnel, to execute recent mandates of the General Assembly and the Security Council in a timely manner, particularly in the areas of military planning and logistics for peace- keeping, disarmament, humanitarian assistance and the international tribunals.
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Over the years, the functions assigned to gratis personnel have expanded from the traditional field of technical assistance projects to the backstopping of peace-keeping operations, the report states. More recently, functions assigned to gratis personnel have extended to economic and social research and analysis, humanitarian assistance, internal oversight services and administration and management. In a range of areas, gratis personnel are increasingly performing continuing functions in tandem with the work of staff members. In some areas, the stage has been reached where a number of the Organization's activities could not be implemented without the services of gratis personnel.
The report notes that gratis personnel remain, for the most part, staff of their individual governments. As such, they are not subject to Article 100 of the Charter and the Staff Regulations, unlike staff members. Neither are they subject to geographical distribution; nor are they accountable to the Secretary-General. Gratis military officers have the status of "experts on mission" and are covered by article VI, section 22, of the Convention on the Privileges and Immunities of the United Nations. Their tour of duty is for a minimum of one year, with the possibility of further extension. However, by their signing of a special service agreement or any other undertaking signed between the Organization and the donor government, gratis personnel have obligations very similar to the basic duties and obligations imposed upon staff members by article I of the Staff Regulations.
[Article 100 states that in the performance of their duties, the Secretary-General and his staff shall not seek or receive instructions from any government or from any other authority external to the Organization. Member States should respect the international character of the staff's responsibilities and should not seek to influence them in the discharge of their duties.]
The report identifies Type I and Type II personnel. Type I serve as associate experts and technical cooperation experts and interns. Type II have been accepted by programme managers by a variety of means, including an exchange of letters between the United Nations and the donor. In some cases, there is no agreement between the United Nations and the individual. In addition, the Secretariat mostly accepts the gratis personnel nominated by their donor governments without independent checking of background, qualifications, experience and performance.
As at 31 October 1996, the numbers of gratis personnel included: 141 military officers in the Department of Peace-keeping Operations, 124 of whom were serving in the Department and 17 in the field; 112 personnel in the United Nations Special Commission set up under Security Council resolution 687 (1991) in connection with the disposal of Iraq's weapons of mass destruction, assisting in carrying out on-site inspections and destruction of biological, chemical and nuclear capabilities in Iraq; 66 personnel in the Department of
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Humanitarian Affairs to carry out such functions as coordinating support for disaster and emergency situations, mine clearance, developing international norms for humanitarian assistance, and producing information kits (at Headquarters); and 55 personnel for the international Tribunal for the former Yugoslavia and 32 for the Rwanda Tribunal.
The report states that the greater proportion of gratis personnel have been provided by a limited number of Member States, resulting in a geographical imbalance (80 per cent of gratis personnel are from developed countries). However, at least in the case of gratis military officers a trust fund has been set up to sponsor military officers from developing countries, in an effort to ensure a better geographical representation. As at 31 October 1996, four personnel from three developing countries have been sponsored by two donor governments.
Accepting gratis personnel cannot be considered as a "no cost" proposition for the Organization, the report states. The financial implications include such costs as secretarial and administrative backstopping, equipment, supplies, office space, utilities, communications, legal and medical services, as well as costs for official travel, daily subsistence allowance and participation in United Nations training and language programmes. To defray costs, the Organization charges 13 per cent for the support services and an additional 1 per cent, if applicable, for compensation to gratis personnel in the event of injury, illness or death attributable to the performance of services on behalf of the United Nations.
As at 31 October 1996, the estimated annual salaries of the 124 gratis military officers, which are paid by governments, was approximately $12.5 million. Support costs to one gratis military officer amounted to approximately $17,900 per year, or $2.2 million per year for the 124 gratis military officers, representing 18 per cent of the cost of those officers. When costs of travel and daily subsistence allowance are included (approximately $248,000 in 1995), the Organization's support costs amount to approximately 20 per cent of the costs of the officers. Furthermore, when one-time costs per person of $12,800 per year for alteration of premises, furniture, computer equipment and software, telephone installation ($1.6 million per year for the 124 gratis military officers) are included, the Organization's total costs are equivalent to 33 per cent of the officers' cost. It would appear, therefore, that charging for programme support costs at the rate of 13 per cent, to deploy the costs involved in accepting gratis personnel, was not excessive.
According to the report, while most governments have complied with United Nations policy of charging for programme support costs, some donor governments are of the view that the Organization benefits from gratis personnel, both in terms of expertise and in terms of savings, and do not, therefore, agree to pay the related costs. They have argued the cost of
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support services should be charged against either the existing vacancies in budgeted posts or to the budget in general. The increase in gratis personnel has meant that the capacity to absorb the support costs has diminished considerably. Relevant to that development is the general principle that budgeted resources should not subsidize activities related to voluntary contributions.
The Advisory Committee on Administrative and Budgetary Questions' (ACABQ) report on gratis personnel (document A/51/813), dated 28 February, recommends that the Secretary-General's guidelines for the acceptance of gratis personnel be redrafted taking the ACABQ's observations and recommendations into account and be submitted to the General Assembly prior to the issuance of the appropriate administrative instructions. It also recommends that the Assembly might wish to limit the extent to which a particular unit could be staffed by gratis personnel. In addition, the Secretary-General should be requested to report annually on the use of gratis personnel, indicating their nationality and summarizing the duration of their service and the functions. In another recommendation, the ACABQ states that, following a decision by the Assembly on the use of gratis personnel, current arrangements which fall outside of the new procedures should be phased out expeditiously. The ACABQ regrets that the Secretary-General did not take earlier action on some of the management issues concerning gratis personnel which are in his domain as chief administrative officer. The use of gratis personnel should not be the result of poor personnel planning. The Secretary-General should not resort on his own to use gratis personnel. If resources are inadequate, it is incumbent on him to propose options to the General Assembly for necessary action. The ACABQ is of the view that gratis personnel should not be sought for positions kept vacant solely for financial reasons nor should Type II gratis personnel be accepted in excess of the Organization's needs.
The report states that all positions must be fully reflected in the relevant budget and provision made for those positions. Each budget should show the complete staffing picture, however funded, for each organizational unit under review. The use of Type II gratis personnel should be on an exceptional and temporary basis only. Their use should be limited to urgent need, such as in start- up operations or sudden expansion in operational requirements and, after the approval of a budget, to expertise for very specialized functions, as identified by the Secretary General.
Financing of UNOMIL
The Secretary-General's report on financing UNOMIL (document A/51/756), dated 18 December 1996, contains the financial performance report of UNOMIL for the period from 1 July 1995 to 30 June 1996. For the period from 1 July 1995 to 31 March 1996, an amount of $30.5 million gross ($29.4 million net) was provided for the Mission's maintenance.
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The resources have been utilized for the period up to and beyond 30 June 1996, the report states. The expenditures for the period from 1 July 1995 to 30 June 1996 amounted to $17 million gross ($16 million net), resulting in an unencumbered balance of $13.5 million gross ($13.4 million net), primarily from the lower actual numbers of military and civilian personnel deployed and non-implementation of the public information and disarmament and demobilization programmes.
The Secretary-General asks the Assembly to appropriate $12.2 million gross ($11.8 million net) already authorized for the operation of the Mission for the period from 1 February to 31 March 1996. The Assembly is also asked to extend the appropriation period to 30 June 1996 and credit Member States the unencumbered balance of $13.5 million gross ($13.4 million net) for the period from 1 July 1995 to 30 June 1996.
A subsequent report on UNOMIL (document A/51/756/Add.1) dated 4 February, contains the second revised budget for UNOMIL for the period from 1 July 1996 to 30 June 1997. It incorporates the additional requirements for implementing the disarmament and demobilization programme, as authorized by the Security Council in its resolution 1083 (1996) of 27 November 1996.
The revised budget amounts to $37 million gross ($35.6 million net), representing an increase of $23 million gross ($22.5 million net) from the appropriation of $14 million gross ($13.2 million net) provided by the Assembly under its resolution 51/3 of 17 October 1996. The increase provides for 58 military observers (a net increase of 57 posts over the 728 posts approved by the Assembly in its resolution 50/210 of 23 December 1995), purchase of additional vehicles, communications and other equipment, and hiring of one additional helicopter, as well as assistance for the disarmament and demobilization programme.
The Assembly is asked to appropriate the additional amount of $23 million gross ($22.4 million net), inclusive of the amount of $10 million gross already authorized by the ACABQ, for UNOMIL's operation for the period from 1 July 1996 to 30 June 1997. It is also asked to assess an additional amount of $16.1 million gross ($16 million net), including a start-up cost of $7 million, for the Mission's operation for the current mandate period from 1 December 1996 to 31 March 1997, in addition to the amount of $4.7 million gross ($4.4 million net) already authorized for the same period.
In addition, the Secretary-General asks the Assembly to assess for the period from 1 April to 30 June 1997 the amount of $2.3 million gross ($1.1 million net), in addition to the amount of $1.2 million gross ($1.1 million net) already authorized, subject to the Security Council extending UNOMIL's mandate.
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In its related report (document A/51/423/Add.1), the ACABQ notes that the total resources made available to the Mission from its inception until 30 June 1997 amount to $115.5 million gross. Estimated expenditures total $81.5 million gross and credits returned to Member States thus far amount to $20.6 million gross. The remaining amount of $13.5 million -- an unencumbered balance -- is subject to action by the Assembly, as requested by the Secretary-General.
Regarding the financial performance report for the period from 1 July 1995 to 30 June 1996, the ACABQ notes that the estimates contained in the Secretary-General reports include costs for the election operation. The revised requirement of $17.9 million gross is inclusive of an amount of $10 million gross already authorized by the ACABQ for operations of the Observer Mission, in December 1996, for implementing the disarmament and demobilization process for the period from 1 December 1996 to 31 January 1997. Total expenditure thus far amounts to $7.2 million, comprising $1.9 million in disbursements and $5.3 million in obligations, leaving an unencumbered balance of $2.8 million.
In its report, the ACABQ expresses serious concern about personnel recruited for the disarmament and demobilization programme and other staff deployments. On the looting of United Nations property as a result of the outbreak of hostilities in Monrovia during April 1996, the ACABQ expects that the matter will be fully investigated. The ACABQ also takes up other issues, such as the rental of office space and the amounts being requested for claim for death and disability benefits and adjustments.
Based on its analysis of the UNOMIL budgets, the ACABQ recommends some changes to the actions that the Assembly should take. It recommends that the Assembly appropriate, rather than the approximately $23 million requested in the Secretary-General's report, an additional amount of $17.9 million gross ($17.5 million net), inclusive of $10 million gross already authorized by the ACABQ, for the operations of UNOMIL for the period from 1 July 1996 to 30 June 1997. It also recommends that the Assembly assess, rather than the $16.1 million requested in the Secretary-General's report, an additional amount of $13.2 million gross ($13 million net), including start-up cost of $7 million, for the operation of the Mission for the current mandate period from 1 December 1996 to 31 March 1997, in addition to the amount of $4.7 million gross ($4.4 million net) already authorized for the same period under Assembly resolution 51/3 of 17 October 1996.
The ACABQ also recommends that the Assembly assess for the period from 1 April to 30 June 1997, rather than the $2.3 million requested in the Secretary-General's report, an amount of $1.6 million gross ($1.5 million net) per month, in addition to the amount of $1.2 million gross ($1.1 million net) already authorized under Assembly resolution 51/3, subject to the Council extending UNOMIL's mandate.
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Human Resources Management
Under human resources management, the Committee has before it a Joint Inspection Unit (JIU) report, entitled "Inspection of the application of United Nations recruitment, placement and promotion policies (Part II. Placement and promotions)" (document A/51/656) and a note by the Secretary- General submitting his comments on the JIU report (document A/51/656/Add.l).
The JIU report states that the functioning of the current placement and promotion system suffered from most of the flaws and deficiencies which were characteristic of the previous systems. Limited promotion possibilities are further aggravated by circumvention of recruitment policies through the use of short-term appointment at the entry and higher levels, followed by so-called "regularization" of temporary staff. Despite criticism by Member States and the JIU -- and in contravention of Administrative Instruction ST/AI/413, which governs the promotion and placement system -- the practice of placing, on a temporary basis, some staff members against vacant posts at levels higher than their own grade for long periods continues to persist and damage the careers of other eligible staff.
The report adds that, in quite a number of cases, placement on higher level posts has been made without announcing vacancies internally, which is at variance with United Nations policy. It is noted that the Department of Administration and Management, which enforces personnel procedures and policies, and the Department of Political Affairs are the departments that most often abused that practice.
The current recruitment, placement and promotion system still lacks objective criteria, the report states. In the context of achieving gender parity, the Secretary-General has introduced a number of measures which are "discriminatory towards male candidates". Such action, and a temporary suspension of recruitment of men, are seen by the JIU and the United Nations Administrative Tribunal as diluting the United Nations Charter's fundamental principle of "securing the highest standards of efficiency, competence and integrity". The report states that another deficiency of the current promotion system is the absence of criteria for accelerated promotion. There is no systematic means for ensuring that equally qualified people fill the same or comparable posts within the various occupational groups. "Promotions may be granted either in a rigorous or open-handed basis, which depends on the individual supervisor but also on the presence or absence of powerful patrons elsewhere, both inside and outside the Organization." That statement was supported by the results of a 1995 worldwide survey of United Nations staff, which revealed that "having friends higher up is by far the decisive factor in promotion" -- according to 66 per cent of 4,252 of the survey respondents. Government support is ranked the second main factor. Overall, only 21 per cent of respondents cited competence as the main factor.
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The JIU makes three sets of recommendations in the report to improve recruitment, placement and promotion policies and procedures. First, the Unit states that the Secretary-General should take urgent measures to review and improve all personnel policies and procedures, with special emphasis on the authority of the Office of Human Resources Management to enforce recruitment placement and promotion policies through the Secretariat. The Secretary- General should also ban the practices of granting temporary appointments at the P-2 and P-3 levels for periods longer than three months (if they were not related to replacement of staff serving on missions) and extending or renewing those temporary appointments over the three-month period.
Also in its first set of recommendations, the Unit proposes that the Secretary-General ensure strict implementation of the policy that entry-level appointments be made exclusively through competitive examinations and through G to P promotion and forbid the so-called "regularization" of temporary contracts. In addition, the Secretary-General should ban the practice of placing staff members on vacant posts which are at a higher level for more than three months -- except in case of staff on mission -- and consider staff members placed on those posts for longer periods as non-eligible for promotion against them.
Addressing career development, the JIU stresses that it "has to be considered one of the most disappointing administrative policy efforts in the United Nations history". Consequently, in its second set of recommendations, the Unit states that the Secretary-General should explain to the Assembly why a career development system has neither been put in place nor has been included in the proposed medium-term plan for the period 1998-2001. The Secretary-General should also inform the Assembly on what policies, staffing and programmes will replace a comprehensive career development system, with time-limited objectives for achieving those actions.
According to the report, other deficiencies of the current system include: the lack of encouragement of mobility; the difficulty of the appointment and promotion bodies to appraise a candidate's technical proficiency since those bodies are not composed along occupational lines; and the lack of consultative/conciliatory or resolution procedures to deal with cases of conflicting recommendations made by field appointment and promotion committees, the Appointment and Promotion Boards and/or programme managers.
Noting the high number of placement and promotion-related grievances and the proportion of decisions by the internal justice bodies in appellants' favour, the Unit states that it is the Organization, not the respective managers, that is paying the price, including in financial compensation. In that connection, there must be a systematic programme of action to ensure that programme managers play their critical leadership role in developing a new management culture and increasing transparency, the report states.
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Therefore, in its third and final recommendation on placement and promotion policies, the JIU states that the Secretary-General should issue a specific guidance to clearly establish responsibility and accountability of programme managers for proper use of human resources, as well as sanctions for non-performance. Those sanctions should include reimbursement in accordance with the relevant Staff Rule (112.3) for any financial loss suffered by the Organization as a result of gross negligence, such as improper motivation, wilful violation, or reckless disregard of Staff Rules and Regulations and established policies regulating recruitment, placement and promotion.
The Secretary-General comments on the JIU report (document A/51/656/Add.1) states that while the comments of the Inspectors are welcomed, some conclusions and factual information utilized in the report do not serve well the Unit's efforts to address inadequacies of the current systems. The data included in the report, although accurate, were drawn from one of the many peripheral OHRM databases, which is dedicated solely to certain limited aspects of human resources management and does not present a complete and consistent picture of all the relevant factors. Thus, the effectiveness of some conclusions and recommendations are diminished.
However, it states, the Secretary-General can support a number of the Inspectors' recommendations, in particular those which closely correlate with the course of the various initiatives undertaken by the Secretariat. The report contains specific comments on: promotion policy; factors affecting promotion; reclassification of posts; mobility; career development/promotion as part of career development; special measures to achieve gender equality; greater responsibility and accountability in human resources management; decentralization and delegation of authority; and the strengthening of the Office of Human Resources Management.
The Secretary-General expresses his support for the recommendations that refer to the need to: emphasize the authority of the Office of Human Resources Management to enforce recruitment, placement and promotion policies throughout the Secretariat; ensure strict application of the requirements concerning education standards in recruitment for posts in the Professional category; and introduce specific criteria for accelerated promotion.
The Secretary-General also expresses his readiness to pursue the recommendations that propose the following: banning the practices of granting temporary appointments at the P-2 and P-3 levels for periods longer than three months (if they are not related to replacement of staff serving on missions) and extending or renewing these temporary appointments over the three-month period; ensuring strict implementation of the policy that entry-level appointments are made exclusively through competitive examinations and through G to P promotion; and forbidding the so-called "regularization" of temporary contracts.
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However, the report states, the Secretary-General cannot endorse the recommendation that calls on him to cancel all provisions giving automatic preferences either in recruitment or placement or promotion, based on gender. The Secretary-General supports the general thrust of the Unit's recommendation on responsibility and accountability of programme managers for proper use of human resources and sanctions for non-performance. That support, in principle, is given on the understanding that the due process rights of all staff, managers included, will be fully respected under all circumstances and that appropriate consultations will take place regarding the modalities of implementing any such arrangements.
Another JIU report -- Comparison of methods of calculating equitable geographical distribution within the United Nations common system (document A/51/705) -- contains a number of recommendations on the matter. The first recommendation states that, in the interest of a fairer interpretation and application of the principle of geographical equity in the staffing of organizations in the United Nations common system, current use of the basic principles, such as membership and contributions, should be at least allocated on a fixed basis. At the very least, high-level managerial posts should be distributed equally among the geographical regions of the world, as determined by each organization. Given the dwindling number of posts at the top of the administrative pyramid, the application of a principle of rotation, particularly in the higher categories, is desirable.
In its second recommendation, the Unit finds it desirable to adopt a principle of weighting, thereby assigning a certain coefficient to each grade in each category of post. An equitable system of grade weighting would rationalize the practice of high-level appointments in large part, as already empirically applied within the United Nations organizations.
In a third recommendation, the Unit states that voluntary contributions from Member States should not be accompanied by pressure or stipulations regarding the recruitment of nationals from a particular country or region, to carry out the projects or programmes financed out of such extrabudgetary resources.
In a fourth recommendation, the Unit cautions against accepting nationals from any country (Member State or not) provided free-of-charge who will perform tasks that would normally be assigned to staff recruited by the organizations themselves. Such entry to common system organizations should not be allowed as an indirect way of integrating such contractees into the category of staff member. The final recommendation proposes the use of a factor of "time a post is occupied" by a staff member of a given nationality. Instead of measuring the geographical distribution of posts year by year, post distribution should preferably be considered over a certain number of years.
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The Secretary-General's comments on the JIU report (document A/51/705/Add.l) states that the Inspectors' analytical approach could have been supplemented by a discussion of the substantive advantages and drawbacks of each system. The absence of such a discussion makes it more difficult for the decision-making bodies to come to a clear and soundly argued conclusion. He would seek further guidance from the Assembly on the various issues raised by the report.
Commenting on each recommendation, the Secretary-General takes up the issue related to increasing the demographic factor, which currently accounts for only 5 per cent of the base figure of 2,700 geographical posts, to a level to be agreed upon by Member States. A formula based on regional and subregional groupings would not solve the problem of country representation within each region. However, he supports the recommendation that high-level managerial posts should be distributed equally among the geographical regions of the world, as is taken into account in the Secretary-General long-term efforts.
The Secretary-General is unable to offer any comments with regard to the system proposed to implement the post-weighting principle via salaries, as sufficient details have not been provided in the report. However, he concurs with the recommendation that voluntary contributions from Member States should not be accompanied by pressure or stipulation regarding the recruitment of nationals of a particular country or region. On the final recommendation, he states that there could be some impediments to its translation into practice, since not only do many staff members in smaller organizations have permanent appointments, but staff members with a fixed-term appointment are entitled to consideration for a career appointment after five years of continuous good service.
Statements Made on Gratis Personnel
NGONI FRANCIS SENGWE (Zimbabwe), the Committee Chairman, said the subject of gratis personnel was being considered under five agenda items, including human resources management, the financing of the international tribunals for the former Yugoslavia and Rwanda, and the administrative and budgetary aspects of peace-keeping operations.
JEAN-PIERRE HALBWACHS, United Nations Controller, introduced the Secretary-General's report on gratis personnel provided by governments and other entities. He said the time had come to address the issue in a comprehensive manner, since it was having a significant impact on the Organization.
The Secretary-General has asked the Assembly to take action as he advised in the report, including approval of the 11 guidelines for the acceptance of gratis personnel, he said. The guidelines concern: the
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selection procedure; functions; length of service; leave entitlement; performance of services and applicable standards of conduct; accountability for breach of duties and obligations of gratis personnel; and programme support costs. He expressed the hope that the Secretariat would receive clear and unequivocal guidance on the issue from the Committee.
CONRAD S.M. MSELLE, Chairman of the ACABQ, introduced his Committee's report on gratis personnel. The ACABQ intended to continue to review the matter in the context of the budget, he said. The Type II gratis personnel had been the source of concern to Member States in various intergovernmental bodies and had been mainly involved in mandated operations, the cost of which was assessed on Member States.
As of 30 January, 443 Type II gratis personnel existed in the Organization, he continued. They fell within five groups: 125 gratis military or civilian officers in the Department of Peace-keeping Operations; four in the Department of Administration and Management; 112 government-provided personnel attached to the United Nations Special Commission; 66 humanitarian assistance, demining and disaster relief experts of the Department for Humanitarian Affairs; 87 personnel provided to the international tribunals; and 49 working throughout the Organization in the political area, the economic and social sectors and others.
Mr. MSELLE said that the Advisory Committee had stated the need to address the issues raised by the continued use of such personnel and drew attention to the views in paragraphs 10 to 15 of the ACABQ report. "I request that these paragraphs be read carefully by all delegations", Mr. Mselle said. Those paragraphs took up issues that the Secretariat and Member States should consider regarding to gratis -- such as personnel planning, reflecting all posts in the budget process, and policies in instances of the sudden expansion of operational requirements.
The ACABQ felt that the programme of work and mandates approved by Member States must be financed in the manner determined by the Assembly, Mr. Mselle continued. If resources were inadequate, the Secretary-General should propose options to the Assembly on how to proceed. The Secretary- General should not try to solve the budget and cash flow difficulties by seeking voluntary contributions to pay for mandated operations. "Such a practice, in the long run, could distort the international character of the Organization and the equality of Member States", he said. "It could compromise the Organization's regulations and rules on fair and transparent procedures, as well as the relevant financial regulations and rules governing competitive bidding for goods and services through the United Nations procurement process."
He said the ACABQ had recommended that, in preparing budgets, positions approved by the Assembly must be filled in the traditional manner in full
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compliance with all existing personnel policies, including the need to maintain geographical balance. "If this procedure was followed, transparency and geographical balance would be enhanced and the recourse to gratis personnel would be virtually eliminated, except in very rare occasions as described in paragraphs 13 and 14 of the Committee's report", he said.
Continuing, Mr. Mselle said any "in kind" resources, such as the cost of gratis personnel and equipment given voluntarily for budgeted work, should be treated as income that would reduce all Member States assessments, not solely for the benefit of the donor of the voluntary contribution.
GABRIELLE DUSCHNER (Canada), speaking also for New Zealand and Australia, said she agreed with the ACABQ that gratis personnel should continue to be used, but only to provide expertise on a temporary and exceptional basis. While the use of Type I personnel had a long history with the United Nations, Type II were a newer phenomenon resulting from a rapid expansion in mandated activities. That had raised concerns that recruiting them was seen as a convenient mechanism and alternative to normal staffing procedures. Similarly, measures that might institutionalize the use of gratis personnel should be avoided, as it would "have the effect of undermining the integrity of what should be a truly multilateral and universally representative system".
She said there was a need to review the number of such personnel in the Organization, their justification, how they were employed and their accountability. While endorsing the ACABQ recommendation that the personnel should be used exceptionally, she questioned the restrictive limits the ACABQ sought to place on the Secretary-General's authority to employ them. In cases of urgency, he should be able to react quickly and to use gratis personnel when he had no other practical option. The ACABQ proposal for a prior submission with full justification would be cumbersome. It should be sufficient for the Secretary-General to report on his recourse to such personnel.
She agreed with the ACABQ recommendation that gratis personnel should not be sought for positions kept vacant for financial reasons. Positions that were temporarily filled by such personnel should not, over time, become permanently filled by gratis officers. The Secretary-General should report annually on the use of gratis personnel, in particular on their nationality, duration of service and functions. There was no reason to exclude gratis personnel from the Secretariat's Performance Appraisal System, which could enhance their accountability. Greater transparency would be achieved with full budgeting, which would give Member States a more accurate picture of the Organization's resource needs, including how the related support costs for the personnel would be accommodated. Administrative support costs should not be charged for Type II gratis personnel.
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Human Resources Management
FATIH BOUAYAD-AGHA, an Inspector with the JIU, introduced the Unit's report on equitable geographical representation, reviewing some of its contents. The principle of equitable geographical representation did not run counter to that of merit, he said. Rather, they complemented each other. While the signatories of the United Nations Charter had emphasized efficiency, there was also a requirement that staff should be hired from the widest possible geographical spread in order to distinguish the United Nations from other enterprises. The issue of equitable distribution had been emphasized since the early days of the Organization.
He said that most entities in the United Nations system were trying to study how to ensure the equitable distribution of posts to ensure that as many Member States as possible were represented in their respective staffs. Each organization was free to use the Unit's recommendations that best suited its needs. The principle of equitable geographical representation was in practice applied only to 20 per cent of international civil servants. The rate was about 40 per cent in the United Nations and much less in some other entities.
Speaking on some of the Secretariat's remarks on the report, he said that the Unit had used three cases to support its views on the issue. For the Unit, the matter was not a question of showing the advantages or disadvantages of the system. Rather, it only wanted to show the most daring and bold approach to be adopted on the issue. There had been some changes in the report, with many tables and graphs missing. He apologized for the omissions from the report.
DENIS HALLIDAY, Assistant Secretary-General for Human Resources Management, introduced the Secretary-General's comments on the JIU report on methods of calculating equitable geographical distribution. He said the subject was one on which the Secretary-General needed the guidance of Member States. WEN CHIN POWLES (New Zealand), speaking also for Canada and Australia, spoke on the JIU report entitled Inspection of the application of United Nations recruitment, placement and promotion policies, which had been introduced to the Committee during the fifty-first regular session of the Assembly. "We are particularly disturbed by its unsubstantiated assertions that discrimination based on gender has been institutionalized in the Secretariat", she said. The Assembly did not share the Unit's view that the special measures promulgated by the Secretary-General in Administrative Instruction ST/AI/412 were redundant. The Inspectors were out of step with the wishes of the Assembly and the Fourth World Conference on Women on the issue of gender parity.
Australia, Canada and New Zealand endorsed the goal of a 50/50 gender balance by the year 2000, including at the D-1 level and above, she continued.
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But, the United Nations was far from implementing the Assembly's successive mandates on the subject. For example, women made up just 35 per cent of those in posts subject to geographical distribution and less than 18 per cent of those at the D-1 level and above. The Secretariat must introduce measures to break down discrimination to make the Charter's principle of equal opportunity a reality for women.
She welcomed the steps elaborated in Administrative Instruction ST/AI/412, saying that such special attention to women was necessary if the Secretariat was to achieve its goal of 50/50 gender distribution by the year 2000. "Our delegations reject the JIU's contention that discrimination against men has been institutionalized in the Secretariat", she said. "To us, that claim sounds very much like the complaint of those who resent the progress that women are slowly making to improve their status in the Secretariat." Such accusations were not borne out by figures showing that men had received more promotions than women in the last two years. She regretted that an otherwise useful report had been marred by such comments.
AHMED FARID (Saudi Arabia), also addressing the JIU report on recruitment, placement and promotion policies, expressed concern about the lack of a career development system in the Organization. Although he recognized the efforts of the Office of Human Resources Management to improve the career development system, he said it was important to develop a time- oriented system.
He shared the Unit's concerns on the Organization's promotion policies, which reflected a lack of mobility of the majority of staff, he continued. Personal promotion should be widely encouraged. The practice of widespread use of short-term staffing must be stopped. The effective implementation of the Integrated Management Information System (IMIS) should help expedite the identification and the filling of vacancies and, therefore, negate the need for temporary hiring.
To ensure the improvement of staff morale, management should establish periodic dialogue with staff, he continued. In addition, he also had concerns about management accountability and the need to improve the evaluation of the performance of consultants and clarify the qualifications for jobs in the Organization. There was also a need for extensive training of managers. He supported the efforts to revise the staff manual to reflect the changing and global needs of the Organization.
HIDEKI GODA (Japan) said the JIU report on equitable geographical distribution lacked arguments to support its recommendations, as pointed out in paragraph 5 of the Secretary-General's report. It would be hard to support some of the recommendations of the Unit, which would introduce new ideas on how to calculate equitable geographical representation. There should be further discussions on the matter.
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DJAMEL MOKTEFI (Algeria) said the JIU recommendations deserved serious consideration. The chief merit of the report would be to stimulate fruitful debate of the ideas proposed by the Unit, which should be considered in depth. The Committee should consider the expansion of the number of posts subject to the principle of equitable geographical representation. The matter should be discussed by the Committee.
WOLFGANG STOCKL (Germany) said he shared the views expressed by New Zealand's representative. More than the current 2,700 posts should be made subject to the principle of equitable geographical representation. Posts in the support account for peace-keeping operations should also be subject to that principle. He regretted that the Secretary-General was getting involved in a debate that should be left for Member States, especially on the matter of the use of population as one of the factors in calculating Member States' quotas. The actual contributions of Member States to the Organization, not their assessment rates, should be used as factors in calculating their quotas. Further, the calculations should be based on national, not regional, bases.
He said the issue of short-term appointments discussed by the representative of Saudi Arabia should be addressed urgently by the General Assembly. The Secretary-General should provide information in the current resumed session on short-term employment on the basis of nationality, length of contract, gender balance and the breaks in their contracts. With the existence of the IMIS, the Secretary-General should be able to supply the requested information.
ANA SILVIA RODRIGUEZ ABASCAL (Cuba) said she was speaking in the light of the statement by New Zealand on recruitment, placement and promotion policies. She supported the goal of 50/50 gender balance in the Secretariat by the year 2000. The views of the JIU were quite important and sought to warn delegations on the implications of the pursuit of that goal. The United Nations should not promote women solely to achieve the goal of equitable gender balance. Rather, the quality of the persons being promoted or recruited should be considered. When two people were equal, the woman should be given preference. The principle of equitable geographical representation should also be considered when implementing the goal of 50/50 gender balance.
SEYED MORTEZA MIRMOHAMMAD (Iran) said the merit of the JIU report was to promote discussion on the issue of equitable geographical representation and to broaden the number of positions subject to that principle. The Secretariat should inform the Committee on the number, percentage and category of posts that were subject to the principle of equitable geographical representation.
RENATA ARCHINI (Italy) said she had been prompted to speak on recruitment, placement and promotion policies because she associated herself with the concerns of the New Zealand delegation on the issue of gender parity in the Secretariat. She did not agree with some of the points made in the JIU
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report on equitable geographical distribution. That was a very delicate subject.
The report could provide a good basis for reflection, but the "audacious ideas" in it needed more reflection by the Assembly, she continued. Any proposal must take into account the Organization's universality. She asked for guidance on the recommendation concerning geographical overrepresentation. The Unit's report said the Secretariat should be prudent in accepting gratis personnel to ensure that there was no overrepresentation of some countries by that means. She was puzzled by the interpretation on that matter. She looked forward to the Committee's handling of the issue of gratis personnel.
LINDA SHENWICK (United States) said, regarding equitable geographical distribution of staff, that she opposed any expansion of the range for such distribution, which was currently relevant to 2,700 posts. That figure had been established by the Assembly and could not be extended unilaterally by the Secretariat. Such posts were subject to two criteria: they must be funded by the regular budget; and must be temporary in nature. Other criteria could not be used, such as posts under extrabudgetary funds. The United States would oppose any proposals by the Secretariat to expand the range regarding geographical distribution, particularly regarding posts funded through the support account for peace-keeping.
Mr. BOUAYAD-AGHA, JIU Inspector, responding to statements by Committee members, said the representative of New Zealand had brought the JIU to trial on the basis of its thoughts. The Unit was not opposed to the recruitment of women. It was opposed to certain criteria applied to their recruitment. For example, the established requirement of seniority had been waived in the case of a female staff member who had been promoted to the P-5 level after only two years at the P-4 level.
The Committee should be alerted to such issues, he said. The Secretariat had also issued circulars stating that only women should be recruited in order to fulfil certain requirements and quotas. Such action was discriminatory. The Unit was trying to inform. He was opposed to the abuse of criteria. Responding to Japan's representative, he said that Member States should determine which system of geographical representation was good for which organization.
The Committee Chairman, Mr. SENGWE (Zimbabwe) informed the Committee that consultations on the human resources management issue would be under the chairmanship of the representative of Austria.
Ms. SHENWICK (United States) asked if the Secretariat was in the process of drafting a code of conduct for staff members. If that was the case, would it be binding on all United Nations officials and when it would be completed? she asked.
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Mr. HALLIDAY, Assistant Secretary-General for Human Resources Management, said the Office of Legal Affairs had been working on a code of conduct. A draft text had been sent to the Staff Union worldwide for their comments. They had been given a deadline of the end of March to respond, and the issue would be discussed by the Staff Management Committee at the end of April. The Secretary-General was expected to make reference to the code of conduct when he addressed the Committee. The Secretary-General's recommendations would then be submitted to the next session of the General Assembly for action.
Mr. MIRMOHAMMAD (Iran) reminded the Committee that he had asked about the number, percentage and category of posts that were subject to the principle of equitable geographical representation.
Mr. HALLIDAY said his questions had been answered by the JIU report -- there were 2,700 posts subject to equitable geographical representation. The report contained other comments on the matter.
Financing of UNOMIL
Mr. HALBWACHS, United Nations Controller, introduced the Secretary- General's report on the funding of the UNOMIL, reviewing some if its contents and requests. About 67 per cent of the posts requested for the Mission were intended for the disarmament and demobilization of Liberian fighters, which would take some three months.
Mr. MSELLE, ACABQ Chairman, introduced the views of the ACABQ.
FAMATTA ROSE OSODE (Liberia) expressed concern regarding the status of the electoral process in Liberia. A ministerial meeting of neighbouring countries on the situation in Liberia had been held to help the peace process along and even the Secretary-General reporting that there was renewed momentum towards a conclusion of the peace process. Despite that, there were rumours that the elections scheduled for May would be postponed. In those circumstances, how feasible was it for the United Nations to make preparations for the scheduled elections? The Secretariat should explain how it intended to proceed.
Mr. HALBWACHS, United Nations Controller, said the elections were due for May. A technical mission had returned from the field and submitted a report, which would help the Secretary-General present further proposals for further action by the Security Council.
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Committee Work Programme
The Fifth Committee (Administrative and Budgetary) met this morning to continue the first part of its resumed session. It is expected to consider reports on gratis personnel provided by governments and other entities, the financing of the United Nations Observer Mission in Liberia (UNOMIL), and human resources management.
The Secretary-General report on gratis personnel provided by governments and other entities (documents A/51/688 and Corr.1), issued 21 November 1996, notes that the number of gratis personnel -- personnel seconded by Member States and other entities at no cost to the United Nations -- and the scope of the functions entrusted to them have grown significantly over the past few years. The issue raises policy and management issues requiring attention at both the Secretariat and intergovernmental levels, which include the importance of preserving the exclusively international character of the responsibilities of the Secretariat.
The Secretary-General stresses the need to establish uniform policies to guide the acceptance of such personnel and their use throughout the Secretariat. He is, therefore, proposing 11 guidelines for the acceptance of gratis personnel -- elaborated in annex I of the report -- to ensure that all concerned comply with United Nations regulations and rules. They take into account issues such as selection procedure, length of service, remuneration, accountability for breach of duties and obligations and programme support costs.
Based on the analysis of the cost and functions of gratis personnel, the Secretary-General invited the General Assembly to reaffirm the principle that Member States collectively should provide the necessary staffing resources to implement the United Nations programmes and activities as decided upon by legislative bodies and to note the conditions and guidelines under which gratis personnel may be accepted by the Secretary-General. The Assembly is also invited to reaffirm the policy that the acceptance of gratis personnel cannot involve, directly or indirectly, additional financial liability for the Organization.
The report notes "the present environment of increasing demands coupled with growing budgetary constraints, leading programme managers to seek and accept offers of gratis personnel in order to offset declining authorized resources in the implementation of the approved work programme". In view of growing resource constraints, it would not have been possible for the Secretariat, without the support of gratis personnel, to execute recent mandates of the General Assembly and the Security Council in a timely manner, particularly in the areas of military planning and logistics for peace- keeping, disarmament, humanitarian assistance and the international tribunals.
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Over the years, the functions assigned to gratis personnel have expanded from the traditional field of technical assistance projects to the backstopping of peace-keeping operations, the report states. More recently, functions assigned to gratis personnel have extended to economic and social research and analysis, humanitarian assistance, internal oversight services and administration and management. In a range of areas, gratis personnel are increasingly performing continuing functions in tandem with the work of staff members. In some areas, the stage has been reached where a number of the Organization's activities could not be implemented without the services of gratis personnel.
The report notes that gratis personnel remain, for the most part, staff of their individual governments. As such, they are not subject to Article 100 of the Charter and the Staff Regulations, unlike staff members. Neither are they subject to geographical distribution; nor are they accountable to the Secretary-General. Gratis military officers have the status of "experts on mission" and are covered by article VI, section 22, of the Convention on the Privileges and Immunities of the United Nations. Their tour of duty is for a minimum of one year, with the possibility of further extension. However, by their signing of a special service agreement or any other undertaking signed between the Organization and the donor government, gratis personnel have obligations very similar to the basic duties and obligations imposed upon staff members by article I of the Staff Regulations.
[Article 100 states that in the performance of their duties, the Secretary-General and his staff shall not seek or receive instructions from any government or from any other authority external to the Organization. Member States should respect the international character of the staff's responsibilities and should not seek to influence them in the discharge of their duties.]
The report identifies Type I and Type II personnel. Type I serve as associate experts and technical cooperation experts and interns. Type II have been accepted by programme managers by a variety of means, including an exchange of letters between the United Nations and the donor. In some cases, there is no agreement between the United Nations and the individual. In addition, the Secretariat mostly accepts the gratis personnel nominated by their donor governments without independent checking of background, qualifications, experience and performance.
As at 31 October 1996, the numbers of gratis personnel included: 141 military officers in the Department of Peace-keeping Operations, 124 of whom were serving in the Department and 17 in the field; 112 personnel in the United Nations Special Commission set up under Security Council resolution 687 (1991) in connection with the disposal of Iraq's weapons of mass destruction, assisting in carrying out on-site inspections and destruction of biological, chemical and nuclear capabilities in Iraq; 66 personnel in the Department of
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Humanitarian Affairs to carry out such functions as coordinating support for disaster and emergency situations, mine clearance, developing international norms for humanitarian assistance, and producing information kits (at Headquarters); and 55 personnel for the international Tribunal for the former Yugoslavia and 32 for the Rwanda Tribunal.
The report states that the greater proportion of gratis personnel have been provided by a limited number of Member States, resulting in a geographical imbalance (80 per cent of gratis personnel are from developed countries). However, at least in the case of gratis military officers a trust fund has been set up to sponsor military officers from developing countries, in an effort to ensure a better geographical representation. As at 31 October 1996, four personnel from three developing countries have been sponsored by two donor governments.
Accepting gratis personnel cannot be considered as a "no cost" proposition for the Organization, the report states. The financial implications include such costs as secretarial and administrative backstopping, equipment, supplies, office space, utilities, communications, legal and medical services, as well as costs for official travel, daily subsistence allowance and participation in United Nations training and language programmes. To defray costs, the Organization charges 13 per cent for the support services and an additional 1 per cent, if applicable, for compensation to gratis personnel in the event of injury, illness or death attributable to the performance of services on behalf of the United Nations.
As at 31 October 1996, the estimated annual salaries of the 124 gratis military officers, which are paid by governments, was approximately $12.5 million. Support costs to one gratis military officer amounted to approximately $17,900 per year, or $2.2 million per year for the 124 gratis military officers, representing 18 per cent of the cost of those officers. When costs of travel and daily subsistence allowance are included (approximately $248,000 in 1995), the Organization's support costs amount to approximately 20 per cent of the costs of the officers. Furthermore, when one-time costs per person of $12,800 per year for alteration of premises, furniture, computer equipment and software, telephone installation ($1.6 million per year for the 124 gratis military officers) are included, the Organization's total costs are equivalent to 33 per cent of the officers' cost. It would appear, therefore, that charging for programme support costs at the rate of 13 per cent, to deploy the costs involved in accepting gratis personnel, was not excessive.
According to the report, while most governments have complied with United Nations policy of charging for programme support costs, some donor governments are of the view that the Organization benefits from gratis personnel, both in terms of expertise and in terms of savings, and do not, therefore, agree to pay the related costs. They have argued the cost of
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support services should be charged against either the existing vacancies in budgeted posts or to the budget in general. The increase in gratis personnel has meant that the capacity to absorb the support costs has diminished considerably. Relevant to that development is the general principle that budgeted resources should not subsidize activities related to voluntary contributions.
The Advisory Committee on Administrative and Budgetary Questions' (ACABQ) report on gratis personnel (document A/51/813), dated 28 February, recommends that the Secretary-General's guidelines for the acceptance of gratis personnel be redrafted taking the ACABQ's observations and recommendations into account and be submitted to the General Assembly prior to the issuance of the appropriate administrative instructions. It also recommends that the Assembly might wish to limit the extent to which a particular unit could be staffed by gratis personnel. In addition, the Secretary-General should be requested to report annually on the use of gratis personnel, indicating their nationality and summarizing the duration of their service and the functions. In another recommendation, the ACABQ states that, following a decision by the Assembly on the use of gratis personnel, current arrangements which fall outside of the new procedures should be phased out expeditiously. The ACABQ regrets that the Secretary-General did not take earlier action on some of the management issues concerning gratis personnel which are in his domain as chief administrative officer. The use of gratis personnel should not be the result of poor personnel planning. The Secretary-General should not resort on his own to use gratis personnel. If resources are inadequate, it is incumbent on him to propose options to the General Assembly for necessary action. The ACABQ is of the view that gratis personnel should not be sought for positions kept vacant solely for financial reasons nor should Type II gratis personnel be accepted in excess of the Organization's needs.
The report states that all positions must be fully reflected in the relevant budget and provision made for those positions. Each budget should show the complete staffing picture, however funded, for each organizational unit under review. The use of Type II gratis personnel should be on an exceptional and temporary basis only. Their use should be limited to urgent need, such as in start- up operations or sudden expansion in operational requirements and, after the approval of a budget, to expertise for very specialized functions, as identified by the Secretary General.
Financing of UNOMIL
The Secretary-General's report on financing UNOMIL (document A/51/756), dated 18 December 1996, contains the financial performance report of UNOMIL for the period from 1 July 1995 to 30 June 1996. For the period from 1 July 1995 to 31 March 1996, an amount of $30.5 million gross ($29.4 million net) was provided for the Mission's maintenance.
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The resources have been utilized for the period up to and beyond 30 June 1996, the report states. The expenditures for the period from 1 July 1995 to 30 June 1996 amounted to $17 million gross ($16 million net), resulting in an unencumbered balance of $13.5 million gross ($13.4 million net), primarily from the lower actual numbers of military and civilian personnel deployed and non-implementation of the public information and disarmament and demobilization programmes.
The Secretary-General asks the Assembly to appropriate $12.2 million gross ($11.8 million net) already authorized for the operation of the Mission for the period from 1 February to 31 March 1996. The Assembly is also asked to extend the appropriation period to 30 June 1996 and credit Member States the unencumbered balance of $13.5 million gross ($13.4 million net) for the period from 1 July 1995 to 30 June 1996.
A subsequent report on UNOMIL (document A/51/756/Add.1) dated 4 February, contains the second revised budget for UNOMIL for the period from 1 July 1996 to 30 June 1997. It incorporates the additional requirements for implementing the disarmament and demobilization programme, as authorized by the Security Council in its resolution 1083 (1996) of 27 November 1996.
The revised budget amounts to $37 million gross ($35.6 million net), representing an increase of $23 million gross ($22.5 million net) from the appropriation of $14 million gross ($13.2 million net) provided by the Assembly under its resolution 51/3 of 17 October 1996. The increase provides for 58 military observers (a net increase of 57 posts over the 728 posts approved by the Assembly in its resolution 50/210 of 23 December 1995), purchase of additional vehicles, communications and other equipment, and hiring of one additional helicopter, as well as assistance for the disarmament and demobilization programme.
The Assembly is asked to appropriate the additional amount of $23 million gross ($22.4 million net), inclusive of the amount of $10 million gross already authorized by the ACABQ, for UNOMIL's operation for the period from 1 July 1996 to 30 June 1997. It is also asked to assess an additional amount of $16.1 million gross ($16 million net), including a start-up cost of $7 million, for the Mission's operation for the current mandate period from 1 December 1996 to 31 March 1997, in addition to the amount of $4.7 million gross ($4.4 million net) already authorized for the same period.
In addition, the Secretary-General asks the Assembly to assess for the period from 1 April to 30 June 1997 the amount of $2.3 million gross ($1.1 million net), in addition to the amount of $1.2 million gross ($1.1 million net) already authorized, subject to the Security Council extending UNOMIL's mandate.
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In its related report (document A/51/423/Add.1), the ACABQ notes that the total resources made available to the Mission from its inception until 30 June 1997 amount to $115.5 million gross. Estimated expenditures total $81.5 million gross and credits returned to Member States thus far amount to $20.6 million gross. The remaining amount of $13.5 million -- an unencumbered balance -- is subject to action by the Assembly, as requested by the Secretary-General.
Regarding the financial performance report for the period from 1 July 1995 to 30 June 1996, the ACABQ notes that the estimates contained in the Secretary-General reports include costs for the election operation. The revised requirement of $17.9 million gross is inclusive of an amount of $10 million gross already authorized by the ACABQ for operations of the Observer Mission, in December 1996, for implementing the disarmament and demobilization process for the period from 1 December 1996 to 31 January 1997. Total expenditure thus far amounts to $7.2 million, comprising $1.9 million in disbursements and $5.3 million in obligations, leaving an unencumbered balance of $2.8 million.
In its report, the ACABQ expresses serious concern about personnel recruited for the disarmament and demobilization programme and other staff deployments. On the looting of United Nations property as a result of the outbreak of hostilities in Monrovia during April 1996, the ACABQ expects that the matter will be fully investigated. The ACABQ also takes up other issues, such as the rental of office space and the amounts being requested for claim for death and disability benefits and adjustments.
Based on its analysis of the UNOMIL budgets, the ACABQ recommends some changes to the actions that the Assembly should take. It recommends that the Assembly appropriate, rather than the approximately $23 million requested in the Secretary-General's report, an additional amount of $17.9 million gross ($17.5 million net), inclusive of $10 million gross already authorized by the ACABQ, for the operations of UNOMIL for the period from 1 July 1996 to 30 June 1997. It also recommends that the Assembly assess, rather than the $16.1 million requested in the Secretary-General's report, an additional amount of $13.2 million gross ($13 million net), including start-up cost of $7 million, for the operation of the Mission for the current mandate period from 1 December 1996 to 31 March 1997, in addition to the amount of $4.7 million gross ($4.4 million net) already authorized for the same period under Assembly resolution 51/3 of 17 October 1996.
The ACABQ also recommends that the Assembly assess for the period from 1 April to 30 June 1997, rather than the $2.3 million requested in the Secretary-General's report, an amount of $1.6 million gross ($1.5 million net) per month, in addition to the amount of $1.2 million gross ($1.1 million net) already authorized under Assembly resolution 51/3, subject to the Council extending UNOMIL's mandate.
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Human Resources Management
Under human resources management, the Committee has before it a Joint Inspection Unit (JIU) report, entitled "Inspection of the application of United Nations recruitment, placement and promotion policies (Part II. Placement and promotions)" (document A/51/656) and a note by the Secretary- General submitting his comments on the JIU report (document A/51/656/Add.l).
The JIU report states that the functioning of the current placement and promotion system suffered from most of the flaws and deficiencies which were characteristic of the previous systems. Limited promotion possibilities are further aggravated by circumvention of recruitment policies through the use of short-term appointment at the entry and higher levels, followed by so-called "regularization" of temporary staff. Despite criticism by Member States and the JIU -- and in contravention of Administrative Instruction ST/AI/413, which governs the promotion and placement system -- the practice of placing, on a temporary basis, some staff members against vacant posts at levels higher than their own grade for long periods continues to persist and damage the careers of other eligible staff.
The report adds that, in quite a number of cases, placement on higher level posts has been made without announcing vacancies internally, which is at variance with United Nations policy. It is noted that the Department of Administration and Management, which enforces personnel procedures and policies, and the Department of Political Affairs are the departments that most often abused that practice.
The current recruitment, placement and promotion system still lacks objective criteria, the report states. In the context of achieving gender parity, the Secretary-General has introduced a number of measures which are "discriminatory towards male candidates". Such action, and a temporary suspension of recruitment of men, are seen by the JIU and the United Nations Administrative Tribunal as diluting the United Nations Charter's fundamental principle of "securing the highest standards of efficiency, competence and integrity". The report states that another deficiency of the current promotion system is the absence of criteria for accelerated promotion. There is no systematic means for ensuring that equally qualified people fill the same or comparable posts within the various occupational groups. "Promotions may be granted either in a rigorous or open-handed basis, which depends on the individual supervisor but also on the presence or absence of powerful patrons elsewhere, both inside and outside the Organization." That statement was supported by the results of a 1995 worldwide survey of United Nations staff, which revealed that "having friends higher up is by far the decisive factor in promotion" -- according to 66 per cent of 4,252 of the survey respondents. Government support is ranked the second main factor. Overall, only 21 per cent of respondents cited competence as the main factor.
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The JIU makes three sets of recommendations in the report to improve recruitment, placement and promotion policies and procedures. First, the Unit states that the Secretary-General should take urgent measures to review and improve all personnel policies and procedures, with special emphasis on the authority of the Office of Human Resources Management to enforce recruitment placement and promotion policies through the Secretariat. The Secretary- General should also ban the practices of granting temporary appointments at the P-2 and P-3 levels for periods longer than three months (if they were not related to replacement of staff serving on missions) and extending or renewing those temporary appointments over the three-month period.
Also in its first set of recommendations, the Unit proposes that the Secretary-General ensure strict implementation of the policy that entry-level appointments be made exclusively through competitive examinations and through G to P promotion and forbid the so-called "regularization" of temporary contracts. In addition, the Secretary-General should ban the practice of placing staff members on vacant posts which are at a higher level for more than three months -- except in case of staff on mission -- and consider staff members placed on those posts for longer periods as non-eligible for promotion against them.
Addressing career development, the JIU stresses that it "has to be considered one of the most disappointing administrative policy efforts in the United Nations history". Consequently, in its second set of recommendations, the Unit states that the Secretary-General should explain to the Assembly why a career development system has neither been put in place nor has been included in the proposed medium-term plan for the period 1998-2001. The Secretary-General should also inform the Assembly on what policies, staffing and programmes will replace a comprehensive career development system, with time-limited objectives for achieving those actions.
According to the report, other deficiencies of the current system include: the lack of encouragement of mobility; the difficulty of the appointment and promotion bodies to appraise a candidate's technical proficiency since those bodies are not composed along occupational lines; and the lack of consultative/conciliatory or resolution procedures to deal with cases of conflicting recommendations made by field appointment and promotion committees, the Appointment and Promotion Boards and/or programme managers.
Noting the high number of placement and promotion-related grievances and the proportion of decisions by the internal justice bodies in appellants' favour, the Unit states that it is the Organization, not the respective managers, that is paying the price, including in financial compensation. In that connection, there must be a systematic programme of action to ensure that programme managers play their critical leadership role in developing a new management culture and increasing transparency, the report states.
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Therefore, in its third and final recommendation on placement and promotion policies, the JIU states that the Secretary-General should issue a specific guidance to clearly establish responsibility and accountability of programme managers for proper use of human resources, as well as sanctions for non-performance. Those sanctions should include reimbursement in accordance with the relevant Staff Rule (112.3) for any financial loss suffered by the Organization as a result of gross negligence, such as improper motivation, wilful violation, or reckless disregard of Staff Rules and Regulations and established policies regulating recruitment, placement and promotion.
The Secretary-General comments on the JIU report (document A/51/656/Add.1) states that while the comments of the Inspectors are welcomed, some conclusions and factual information utilized in the report do not serve well the Unit's efforts to address inadequacies of the current systems. The data included in the report, although accurate, were drawn from one of the many peripheral OHRM databases, which is dedicated solely to certain limited aspects of human resources management and does not present a complete and consistent picture of all the relevant factors. Thus, the effectiveness of some conclusions and recommendations are diminished.
However, it states, the Secretary-General can support a number of the Inspectors' recommendations, in particular those which closely correlate with the course of the various initiatives undertaken by the Secretariat. The report contains specific comments on: promotion policy; factors affecting promotion; reclassification of posts; mobility; career development/promotion as part of career development; special measures to achieve gender equality; greater responsibility and accountability in human resources management; decentralization and delegation of authority; and the strengthening of the Office of Human Resources Management.
The Secretary-General expresses his support for the recommendations that refer to the need to: emphasize the authority of the Office of Human Resources Management to enforce recruitment, placement and promotion policies throughout the Secretariat; ensure strict application of the requirements concerning education standards in recruitment for posts in the Professional category; and introduce specific criteria for accelerated promotion.
The Secretary-General also expresses his readiness to pursue the recommendations that propose the following: banning the practices of granting temporary appointments at the P-2 and P-3 levels for periods longer than three months (if they are not related to replacement of staff serving on missions) and extending or renewing these temporary appointments over the three-month period; ensuring strict implementation of the policy that entry-level appointments are made exclusively through competitive examinations and through G to P promotion; and forbidding the so-called "regularization" of temporary contracts.
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However, the report states, the Secretary-General cannot endorse the recommendation that calls on him to cancel all provisions giving automatic preferences either in recruitment or placement or promotion, based on gender. The Secretary-General supports the general thrust of the Unit's recommendation on responsibility and accountability of programme managers for proper use of human resources and sanctions for non-performance. That support, in principle, is given on the understanding that the due process rights of all staff, managers included, will be fully respected under all circumstances and that appropriate consultations will take place regarding the modalities of implementing any such arrangements.
Another JIU report -- Comparison of methods of calculating equitable geographical distribution within the United Nations common system (document A/51/705) -- contains a number of recommendations on the matter. The first recommendation states that, in the interest of a fairer interpretation and application of the principle of geographical equity in the staffing of organizations in the United Nations common system, current use of the basic principles, such as membership and contributions, should be at least allocated on a fixed basis. At the very least, high-level managerial posts should be distributed equally among the geographical regions of the world, as determined by each organization. Given the dwindling number of posts at the top of the administrative pyramid, the application of a principle of rotation, particularly in the higher categories, is desirable.
In its second recommendation, the Unit finds it desirable to adopt a principle of weighting, thereby assigning a certain coefficient to each grade in each category of post. An equitable system of grade weighting would rationalize the practice of high-level appointments in large part, as already empirically applied within the United Nations organizations.
In a third recommendation, the Unit states that voluntary contributions from Member States should not be accompanied by pressure or stipulations regarding the recruitment of nationals from a particular country or region, to carry out the projects or programmes financed out of such extrabudgetary resources.
In a fourth recommendation, the Unit cautions against accepting nationals from any country (Member State or not) provided free-of-charge who will perform tasks that would normally be assigned to staff recruited by the organizations themselves. Such entry to common system organizations should not be allowed as an indirect way of integrating such contractees into the category of staff member. The final recommendation proposes the use of a factor of "time a post is occupied" by a staff member of a given nationality. Instead of measuring the geographical distribution of posts year by year, post distribution should preferably be considered over a certain number of years.
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The Secretary-General's comments on the JIU report (document A/51/705/Add.l) states that the Inspectors' analytical approach could have been supplemented by a discussion of the substantive advantages and drawbacks of each system. The absence of such a discussion makes it more difficult for the decision-making bodies to come to a clear and soundly argued conclusion. He would seek further guidance from the Assembly on the various issues raised by the report.
Commenting on each recommendation, the Secretary-General takes up the issue related to increasing the demographic factor, which currently accounts for only 5 per cent of the base figure of 2,700 geographical posts, to a level to be agreed upon by Member States. A formula based on regional and subregional groupings would not solve the problem of country representation within each region. However, he supports the recommendation that high-level managerial posts should be distributed equally among the geographical regions of the world, as is taken into account in the Secretary-General long-term efforts.
The Secretary-General is unable to offer any comments with regard to the system proposed to implement the post-weighting principle via salaries, as sufficient details have not been provided in the report. However, he concurs with the recommendation that voluntary contributions from Member States should not be accompanied by pressure or stipulation regarding the recruitment of nationals of a particular country or region. On the final recommendation, he states that there could be some impediments to its translation into practice, since not only do many staff members in smaller organizations have permanent appointments, but staff members with a fixed-term appointment are entitled to consideration for a career appointment after five years of continuous good service.
Statements Made on Gratis Personnel
NGONI FRANCIS SENGWE (Zimbabwe), the Committee Chairman, said the subject of gratis personnel was being considered under five agenda items, including human resources management, the financing of the international tribunals for the former Yugoslavia and Rwanda, and the administrative and budgetary aspects of peace-keeping operations.
JEAN-PIERRE HALBWACHS, United Nations Controller, introduced the Secretary-General's report on gratis personnel provided by governments and other entities. He said the time had come to address the issue in a comprehensive manner, since it was having a significant impact on the Organization.
The Secretary-General has asked the Assembly to take action as he advised in the report, including approval of the 11 guidelines for the acceptance of gratis personnel, he said. The guidelines concern: the
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selection procedure; functions; length of service; leave entitlement; performance of services and applicable standards of conduct; accountability for breach of duties and obligations of gratis personnel; and programme support costs. He expressed the hope that the Secretariat would receive clear and unequivocal guidance on the issue from the Committee.
CONRAD S.M. MSELLE, Chairman of the ACABQ, introduced his Committee's report on gratis personnel. The ACABQ intended to continue to review the matter in the context of the budget, he said. The Type II gratis personnel had been the source of concern to Member States in various intergovernmental bodies and had been mainly involved in mandated operations, the cost of which was assessed on Member States.
As of 30 January, 443 Type II gratis personnel existed in the Organization, he continued. They fell within five groups: 125 gratis military or civilian officers in the Department of Peace-keeping Operations; four in the Department of Administration and Management; 112 government-provided personnel attached to the United Nations Special Commission; 66 humanitarian assistance, demining and disaster relief experts of the Department for Humanitarian Affairs; 87 personnel provided to the international tribunals; and 49 working throughout the Organization in the political area, the economic and social sectors and others.
Mr. MSELLE said that the Advisory Committee had stated the need to address the issues raised by the continued use of such personnel and drew attention to the views in paragraphs 10 to 15 of the ACABQ report. "I request that these paragraphs be read carefully by all delegations", Mr. Mselle said. Those paragraphs took up issues that the Secretariat and Member States should consider regarding to gratis -- such as personnel planning, reflecting all posts in the budget process, and policies in instances of the sudden expansion of operational requirements.
The ACABQ felt that the programme of work and mandates approved by Member States must be financed in the manner determined by the Assembly, Mr. Mselle continued. If resources were inadequate, the Secretary-General should propose options to the Assembly on how to proceed. The Secretary- General should not try to solve the budget and cash flow difficulties by seeking voluntary contributions to pay for mandated operations. "Such a practice, in the long run, could distort the international character of the Organization and the equality of Member States", he said. "It could compromise the Organization's regulations and rules on fair and transparent procedures, as well as the relevant financial regulations and rules governing competitive bidding for goods and services through the United Nations procurement process."
He said the ACABQ had recommended that, in preparing budgets, positions approved by the Assembly must be filled in the traditional manner in full
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compliance with all existing personnel policies, including the need to maintain geographical balance. "If this procedure was followed, transparency and geographical balance would be enhanced and the recourse to gratis personnel would be virtually eliminated, except in very rare occasions as described in paragraphs 13 and 14 of the Committee's report", he said.
Continuing, Mr. Mselle said any "in kind" resources, such as the cost of gratis personnel and equipment given voluntarily for budgeted work, should be treated as income that would reduce all Member States assessments, not solely for the benefit of the donor of the voluntary contribution.
GABRIELLE DUSCHNER (Canada), speaking also for New Zealand and Australia, said she agreed with the ACABQ that gratis personnel should continue to be used, but only to provide expertise on a temporary and exceptional basis. While the use of Type I personnel had a long history with the United Nations, Type II were a newer phenomenon resulting from a rapid expansion in mandated activities. That had raised concerns that recruiting them was seen as a convenient mechanism and alternative to normal staffing procedures. Similarly, measures that might institutionalize the use of gratis personnel should be avoided, as it would "have the effect of undermining the integrity of what should be a truly multilateral and universally representative system".
She said there was a need to review the number of such personnel in the Organization, their justification, how they were employed and their accountability. While endorsing the ACABQ recommendation that the personnel should be used exceptionally, she questioned the restrictive limits the ACABQ sought to place on the Secretary-General's authority to employ them. In cases of urgency, he should be able to react quickly and to use gratis personnel when he had no other practical option. The ACABQ proposal for a prior submission with full justification would be cumbersome. It should be sufficient for the Secretary-General to report on his recourse to such personnel.
She agreed with the ACABQ recommendation that gratis personnel should not be sought for positions kept vacant for financial reasons. Positions that were temporarily filled by such personnel should not, over time, become permanently filled by gratis officers. The Secretary-General should report annually on the use of gratis personnel, in particular on their nationality, duration of service and functions. There was no reason to exclude gratis personnel from the Secretariat's Performance Appraisal System, which could enhance their accountability. Greater transparency would be achieved with full budgeting, which would give Member States a more accurate picture of the Organization's resource needs, including how the related support costs for the personnel would be accommodated. Administrative support costs should not be charged for Type II gratis personnel.
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Human Resources Management
FATIH BOUAYAD-AGHA, an Inspector with the JIU, introduced the Unit's report on equitable geographical representation, reviewing some of its contents. The principle of equitable geographical representation did not run counter to that of merit, he said. Rather, they complemented each other. While the signatories of the United Nations Charter had emphasized efficiency, there was also a requirement that staff should be hired from the widest possible geographical spread in order to distinguish the United Nations from other enterprises. The issue of equitable distribution had been emphasized since the early days of the Organization.
He said that most entities in the United Nations system were trying to study how to ensure the equitable distribution of posts to ensure that as many Member States as possible were represented in their respective staffs. Each organization was free to use the Unit's recommendations that best suited its needs. The principle of equitable geographical representation was in practice applied only to 20 per cent of international civil servants. The rate was about 40 per cent in the United Nations and much less in some other entities.
Speaking on some of the Secretariat's remarks on the report, he said that the Unit had used three cases to support its views on the issue. For the Unit, the matter was not a question of showing the advantages or disadvantages of the system. Rather, it only wanted to show the most daring and bold approach to be adopted on the issue. There had been some changes in the report, with many tables and graphs missing. He apologized for the omissions from the report.
DENIS HALLIDAY, Assistant Secretary-General for Human Resources Management, introduced the Secretary-General's comments on the JIU report on methods of calculating equitable geographical distribution. He said the subject was one on which the Secretary-General needed the guidance of Member States. WEN CHIN POWLES (New Zealand), speaking also for Canada and Australia, spoke on the JIU report entitled Inspection of the application of United Nations recruitment, placement and promotion policies, which had been introduced to the Committee during the fifty-first regular session of the Assembly. "We are particularly disturbed by its unsubstantiated assertions that discrimination based on gender has been institutionalized in the Secretariat", she said. The Assembly did not share the Unit's view that the special measures promulgated by the Secretary-General in Administrative Instruction ST/AI/412 were redundant. The Inspectors were out of step with the wishes of the Assembly and the Fourth World Conference on Women on the issue of gender parity.
Australia, Canada and New Zealand endorsed the goal of a 50/50 gender balance by the year 2000, including at the D-1 level and above, she continued.
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But, the United Nations was far from implementing the Assembly's successive mandates on the subject. For example, women made up just 35 per cent of those in posts subject to geographical distribution and less than 18 per cent of those at the D-1 level and above. The Secretariat must introduce measures to break down discrimination to make the Charter's principle of equal opportunity a reality for women.
She welcomed the steps elaborated in Administrative Instruction ST/AI/412, saying that such special attention to women was necessary if the Secretariat was to achieve its goal of 50/50 gender distribution by the year 2000. "Our delegations reject the JIU's contention that discrimination against men has been institutionalized in the Secretariat", she said. "To us, that claim sounds very much like the complaint of those who resent the progress that women are slowly making to improve their status in the Secretariat." Such accusations were not borne out by figures showing that men had received more promotions than women in the last two years. She regretted that an otherwise useful report had been marred by such comments.
AHMED FARID (Saudi Arabia), also addressing the JIU report on recruitment, placement and promotion policies, expressed concern about the lack of a career development system in the Organization. Although he recognized the efforts of the Office of Human Resources Management to improve the career development system, he said it was important to develop a time- oriented system.
He shared the Unit's concerns on the Organization's promotion policies, which reflected a lack of mobility of the majority of staff, he continued. Personal promotion should be widely encouraged. The practice of widespread use of short-term staffing must be stopped. The effective implementation of the Integrated Management Information System (IMIS) should help expedite the identification and the filling of vacancies and, therefore, negate the need for temporary hiring.
To ensure the improvement of staff morale, management should establish periodic dialogue with staff, he continued. In addition, he also had concerns about management accountability and the need to improve the evaluation of the performance of consultants and clarify the qualifications for jobs in the Organization. There was also a need for extensive training of managers. He supported the efforts to revise the staff manual to reflect the changing and global needs of the Organization.
HIDEKI GODA (Japan) said the JIU report on equitable geographical distribution lacked arguments to support its recommendations, as pointed out in paragraph 5 of the Secretary-General's report. It would be hard to support some of the recommendations of the Unit, which would introduce new ideas on how to calculate equitable geographical representation. There should be further discussions on the matter.
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DJAMEL MOKTEFI (Algeria) said the JIU recommendations deserved serious consideration. The chief merit of the report would be to stimulate fruitful debate of the ideas proposed by the Unit, which should be considered in depth. The Committee should consider the expansion of the number of posts subject to the principle of equitable geographical representation. The matter should be discussed by the Committee.
WOLFGANG STOCKL (Germany) said he shared the views expressed by New Zealand's representative. More than the current 2,700 posts should be made subject to the principle of equitable geographical representation. Posts in the support account for peace-keeping operations should also be subject to that principle. He regretted that the Secretary-General was getting involved in a debate that should be left for Member States, especially on the matter of the use of population as one of the factors in calculating Member States' quotas. The actual contributions of Member States to the Organization, not their assessment rates, should be used as factors in calculating their quotas. Further, the calculations should be based on national, not regional, bases.
He said the issue of short-term appointments discussed by the representative of Saudi Arabia should be addressed urgently by the General Assembly. The Secretary-General should provide information in the current resumed session on short-term employment on the basis of nationality, length of contract, gender balance and the breaks in their contracts. With the existence of the IMIS, the Secretary-General should be able to supply the requested information.
ANA SILVIA RODRIGUEZ ABASCAL (Cuba) said she was speaking in the light of the statement by New Zealand on recruitment, placement and promotion policies. She supported the goal of 50/50 gender balance in the Secretariat by the year 2000. The views of the JIU were quite important and sought to warn delegations on the implications of the pursuit of that goal. The United Nations should not promote women solely to achieve the goal of equitable gender balance. Rather, the quality of the persons being promoted or recruited should be considered. When two people were equal, the woman should be given preference. The principle of equitable geographical representation should also be considered when implementing the goal of 50/50 gender balance.
SEYED MORTEZA MIRMOHAMMAD (Iran) said the merit of the JIU report was to promote discussion on the issue of equitable geographical representation and to broaden the number of positions subject to that principle. The Secretariat should inform the Committee on the number, percentage and category of posts that were subject to the principle of equitable geographical representation.
RENATA ARCHINI (Italy) said she had been prompted to speak on recruitment, placement and promotion policies because she associated herself with the concerns of the New Zealand delegation on the issue of gender parity in the Secretariat. She did not agree with some of the points made in the JIU
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report on equitable geographical distribution. That was a very delicate subject.
The report could provide a good basis for reflection, but the "audacious ideas" in it needed more reflection by the Assembly, she continued. Any proposal must take into account the Organization's universality. She asked for guidance on the recommendation concerning geographical overrepresentation. The Unit's report said the Secretariat should be prudent in accepting gratis personnel to ensure that there was no overrepresentation of some countries by that means. She was puzzled by the interpretation on that matter. She looked forward to the Committee's handling of the issue of gratis personnel.
LINDA SHENWICK (United States) said, regarding equitable geographical distribution of staff, that she opposed any expansion of the range for such distribution, which was currently relevant to 2,700 posts. That figure had been established by the Assembly and could not be extended unilaterally by the Secretariat. Such posts were subject to two criteria: they must be funded by the regular budget; and must be temporary in nature. Other criteria could not be used, such as posts under extrabudgetary funds. The United States would oppose any proposals by the Secretariat to expand the range regarding geographical distribution, particularly regarding posts funded through the support account for peace-keeping.
Mr. BOUAYAD-AGHA, JIU Inspector, responding to statements by Committee members, said the representative of New Zealand had brought the JIU to trial on the basis of its thoughts. The Unit was not opposed to the recruitment of women. It was opposed to certain criteria applied to their recruitment. For example, the established requirement of seniority had been waived in the case of a female staff member who had been promoted to the P-5 level after only two years at the P-4 level.
The Committee should be alerted to such issues, he said. The Secretariat had also issued circulars stating that only women should be recruited in order to fulfil certain requirements and quotas. Such action was discriminatory. The Unit was trying to inform. He was opposed to the abuse of criteria. Responding to Japan's representative, he said that Member States should determine which system of geographical representation was good for which organization.
The Committee Chairman, Mr. SENGWE (Zimbabwe) informed the Committee that consultations on the human resources management issue would be under the chairmanship of the representative of Austria.
Ms. SHENWICK (United States) asked if the Secretariat was in the process of drafting a code of conduct for staff members. If that was the case, would it be binding on all United Nations officials and when it would be completed? she asked.
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Mr. HALLIDAY, Assistant Secretary-General for Human Resources Management, said the Office of Legal Affairs had been working on a code of conduct. A draft text had been sent to the Staff Union worldwide for their comments. They had been given a deadline of the end of March to respond, and the issue would be discussed by the Staff Management Committee at the end of April. The Secretary-General was expected to make reference to the code of conduct when he addressed the Committee. The Secretary-General's recommendations would then be submitted to the next session of the General Assembly for action.
Mr. MIRMOHAMMAD (Iran) reminded the Committee that he had asked about the number, percentage and category of posts that were subject to the principle of equitable geographical representation.
Mr. HALLIDAY said his questions had been answered by the JIU report -- there were 2,700 posts subject to equitable geographical representation. The report contained other comments on the matter.
Financing of UNOMIL
Mr. HALBWACHS, United Nations Controller, introduced the Secretary- General's report on the funding of the UNOMIL, reviewing some if its contents and requests. About 67 per cent of the posts requested for the Mission were intended for the disarmament and demobilization of Liberian fighters, which would take some three months.
Mr. MSELLE, ACABQ Chairman, introduced the views of the ACABQ.
FAMATTA ROSE OSODE (Liberia) expressed concern regarding the status of the electoral process in Liberia. A ministerial meeting of neighbouring countries on the situation in Liberia had been held to help the peace process along and even the Secretary-General reporting that there was renewed momentum towards a conclusion of the peace process. Despite that, there were rumours that the elections scheduled for May would be postponed. In those circumstances, how feasible was it for the United Nations to make preparations for the scheduled elections? The Secretariat should explain how it intended to proceed.
Mr. HALBWACHS, United Nations Controller, said the elections were due for May. A technical mission had returned from the field and submitted a report, which would help the Secretary-General present further proposals for further action by the Security Council.
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