PROPOSED MEDIUM-TERM PLAN FOR UNITED NATIONS FOR 2002 TO 2005 SET BEFORE FIFTH COMMITTEE

Press Release
GA/AB/3401

PROPOSED MEDIUM-TERM PLAN FOR UNITED NATIONS FOR 2002 TO 2005 SET BEFORE FIFTH COMMITTEE

The Fifth Committee (Administrative and Budgetary) this afternoon began its consideration of the proposed medium-term plan for 2002-2005.

[The medium term plan, once approved by the General Assembly, constitutes the principal policy directive of the United Nations. It provides the overall direction for the work of the Organization and serves as a framework for the formulation of the biennial programme budgets.]

Introducing the Secretary-General’s proposed medium-term plan, United Nations Controller Jean-Pierre Halbwachs said that, compared with previous plans, the structure and format of the new one had been strengthened and special efforts taken to capture the essence of each programme and subprogramme. The plan also included indicators of achievement for each of the expected accomplishments, which would help to determine whether or not accomplishments were attained during the plan’s four-year term.

Mr. Halbwachs went on to say that the medium-term plan reflected a recognition of the dignity and worth of the human person, as well as an increased awareness of the need for gender sensitivity when designing programmes, projects and activities. The programmes had also been designed to make the best use of technological developments to enhance the effectiveness of the Organization's activities.

The President of the Committee for Programme and Coordination (CPC), Tommo Monthe, introducing that body’s report, said that the CPC recommended adoption of 24 of the plan’s 25 programmes -- the exception being the human rights programme which it referred to the General Assembly for consideration.

The representative of France, speaking on behalf of the European Union and associated States, said that the inclusion of expected accomplishments and indicators of achievements had increased the transparency of programme design. The unified presentation was a major improvement over previous medium-term plans and allowed for an effective implementation of the programme planning, budgeting, monitoring and evaluation cycle. The plan’s new layout could also be an opportunity for Member States to reflect on setting the priorities of the Organization in order. Setting priorities that were too general and covered practically all areas of the activities of the United Nations, did not make it any easier to draft the corresponding budgets. It also scattered inadequate resources.

The Committee will meet again at 10 a.m. tomorrow, 3 November, to consider appointments to subsidiary organs and other appointments.

Fifth Committee - 2 - Press Release GA/AB/3401 19th Meeting (PM) 2 November 2000

Committee Work Programme

The Fifth Committee (Administrative and Budgetary) met this afternoon to begin its general discussion of its agenda item on programme planning.

The Committee had before it a report of the Committee for Programme and Coordination (CPC) (document A/55/16) on its fortieth session, which was held from 5 June to 1 July and 21 to 29 August 2000 at United Nations Headquarters.

[The Committee on Programme and Coordination (CPC) is the main subsidiary organ of the Economic and Social Council and the General Assembly for planning, programming and coordination. It reviews the programmes of the United Nations and assists the Economic and Social Council in its coordination functions, including by considering the activities and programmes of agencies of the United Nations system, examining system-wide coherence and coordination, and examining the implementation of important legislative decisions. Its conclusions and recommendations play a key role in the adoption of the programme budget by the General Assembly.]

According to the report, at the first part of its fortieth session, the CPC considered the proposed medium-term plan for 2002-2005, which is the principal policy directive of the United Nations, which provides the framework for the biennial programme budgets. It found the plan generally complied with the revised Regulations and Rules Governing Programme Planning, but more clarity was required, on the role of each of the programme and subprogramme components and on their usefulness for evaluation and monitoring.

Despite some improvement over previous plans, the medium-term plan was still too broad to be an effective policy guidance document, the report continues. To achieve a sound planning cycle and an integrated management process, monitoring and evaluation must be reflected more effectively throughout the programme planning process. Identification of expected accomplishments and indicators of achievement, without making a proper distinction, could create important differences between programmes in the terms of budgeting and evaluation process. As some programmes would be in a better position to show achievements, the use of those elements in the plan and the programme budget should be flexible.

The report also says that, although the introduction to the medium-term plan identified globalization as a major challenge, it failed to offer clear solutions. The plan identified poverty as the Organization's primary challenge. However, peace and security still had a central role in the world today. In that regard, the Committee felt that more emphasis should be placed on the prevention of conflicts. Regarding the proposed strengthening of coordination in the area of peace and security, the Secretary-General should adhere to the principles of the Charter, including respect for the sovereignty of Member States and the principle of non- intervention in internal matters.

The CPC recommends that the Assembly adopt the introduction to the proposed medium-term plan, subject to several observations. The Assembly had not yet approved the Secretary-General's proposal on results-based budgeting. The concepts of "expected accomplishments", "outputs", "objectives" and "activities" were not exclusively related to that form of budgeting. Although expected accomplishments and indicators of achievement did increase transparency and clarity in programme design, a number of expected accomplishments and indicators need improvement. The distinct responsibilities of the Secretariat, as well as Member States, should be identified. All mandates and activities relating to the various programmes should be included in the plan. The CPC also recommends that the Assembly review legislative mandates to ensure their relevance to the respective programmes.

During the first part of its fortieth session, the CPC also considered the 25 programmes of the proposed medium-term plan. The programmes are: political affairs, disarmament, peacekeeping operations, peaceful uses of outer space, legal affairs, General Assembly and Economic and Social Council affairs and conference services, economic and social affairs, Africa -- New Agenda for Development, trade and development, environment, human settlements, crime prevention and criminal justice, international drug control, economic and social development in Africa, economic and social development in Asia and the Pacific, economic development in Europe, economic and social development in Latin America and the Caribbean, economic and social development in Western Asia, human rights, humanitarian assistance, protection of and assistance to refugees, Palestine refugees, public information, management and central support services, and internal oversight.

It recommends that the Assembly approve all of the 25 programmes of the proposed medium-term plan, with the exception of the human rights programme. Consideration of this programme, along with the economic and social affairs programme, was deferred to the second part of its session.

In its discussion of the human rights programme, the CPC states that the promotion and protection of human rights is one of the priorities of the United Nations. The proposed programme was coherent and highlighted the central role of the Office of the High Commissioner. However, the responsibilities of the Secretariat and Member States need to be better delineated. The CPC was also concerned that the right to development was not given sufficient attention. There was no agreement on human rights as a cross-cutting issue. The CPC recommends, therefore, that the Assembly carefully review the human rights programme.

Emphasizing the increasingly important role of evaluation, the CPC recommends that future reports of the Office of Internal Oversight Services should be more analytical, determine whether evaluation functions were being effectively carried out in the Secretariat, and consider how they might be improved. The CPC also decided that in 2001, the topics for in-depth evaluation would be sustainable development and population. In 2002, the topics for evaluation would be General Assembly and Economic and Social Council Affairs, Economic and Social Council support and coordination, and Legal Affairs.

Having considered the annual overview report of the Administrative Committee on Coordination (ACC) for 1999, the CPC recommends that while continuing to address the HIV/AIDS epidemic in Africa, attention should also be given to other geographical regions, in particular to Asia. It also emphasizes the need to establish an intergovernmental process to study cooperation between the United Nations and the private sector. The CPC stresses the role of the ACC in implementing relevant intergovernmental mandates for mobilizing and monitoring the economic assistance efforts by the international community and the United Nations system for States confronted with special economic problems due to preventive or enforcement measures imposed by the Security Council.

At the second part of its fortieth session, the CPC took up programme performance for the biennium 1998-1999. The overall rate of implementation, some 88 per cent, was the highest level in a decade and was a clear indication that the Secretary-General’s reform initiatives had benefited the Organization. The CPC asks all reporting entities to bear in mind that systematic and consistent programme monitoring were critical components of programme management. Moreover, some assessments were too general to determine whether activities had resulted in expected outcomes. The CPC looks forward to further refinement of future programme performance reports.

The CPC also considered the proposed programme budget outline for the biennium 2002-2003. Commenting on it, the CPC regrets the exclusion of a provision for special political missions. A better solution was needed to adequately finance mandated political missions as necessary, without negatively affecting other mandated programmes and activities. The proposed budget outline also did not contain resources for strengthening the security and safety of United Nations’ personnel. The CPC also states that budgetary discipline should not be equated with zero nominal growth or negative growth. At the same time, however, rigorous scrutiny was needed to achieve additional cost-effective measures. During the reform period, the United Nations must firmly adhere to the budgetary policy of zero nominal growth.

The CPC recommends that the Assembly further consider all aspects of the proposed programme budget outline. The preliminary estimates should be adequate for the full implementation of all mandated programmes and activities, including projects initiated in 2000-2001. The CPC recommends approval of the priorities contained in the Secretary-General’s report on the proposed programme budget outline for 2002-2003. The size of the contingency fund should be 0.75 per cent of the budget outline.

On its own working methods and procedures, the CPC emphasizes that all future programme budgets should include legislative mandates for programme narratives. It reiterates its recommendation that relevant intergovernmental bodies, as well as the Economic and Social Council and the main committees of the Assembly, should include in their programme of work an agenda item on programme planning for the review of the proposed medium-term plan and its revisions. The CPC also stresses the need for the senior programme managers to assist it in deliberations on the agenda items pertaining to their areas of responsibility.

The Fifth Committee also had before it introduction and programmes 1-25 of the proposed medium-term plan for 2002-2005 (document A/55/6). The introduction to the plan lists priorities for 2002-2005. They include: the maintenance of international peace and security, promotion of sustained economic growth and sustainable development, the development of Africa, promotion of human rights, effective coordination of humanitarian assistance efforts, promotion of justice and international law, disarmament and drug control, crime prevention, and combating international terrorism.

The proposed medium-term plan also contains the overall orientation, subprogrammes and legislative mandates for each programme. The objectives of each programme are defined, as well as their strategies, expected accomplishments and indicators of achievements.

Also before the Committee was a note by the Secretary-General transmitting the report of the Office of Internal Oversight Services on strengthening the role of evaluation findings in programme design, delivery and policy directives (document A/55/63), reviewing in-depth evaluation and self-evaluation activities within the United Nations system in 1998-1999. The report highlights several developments in United Nations evaluation practices and concludes that the situation has improved significantly in the last two years.

According to the document, institutional arrangements for conducting evaluations in United Nations departments and offices range from units devoted to evaluation, through focal points within monitoring and programme coordination divisions, to ad hoc arrangements. The Oversight Office also provides management consulting services to departments and offices at their request. Of particular note during the 1998-1999 biennium was the conduct of high-level ad hoc examinations of the fall of Srebrenica, the operation and functioning of the International Tribunal for the Former Yugoslavia and the International Criminal Tribunal for Rwanda, and the actions of the United Nations during the 1994 genocide in Rwanda.

For large-scale field operations (peacekeeping or refugee situations), the evaluation, or lessons-learned, function is well established, the report states. In other substantive activities in the political, economic and social and public information fields, solid evaluation work is being conducted on a wider scale than in previous bienniums. Conference and support services also have instituted more critical reviews and assessments than previously. Reinforcing this work, the Office of Internal Oversight Services conducted management audits and inspections of support service activities during the biennium 1998-1999.

The Committee had before it the Secretary-General's report on the programme performance of the United Nations for the biennium 1998-1999 (document A/55/73), which, according to the established regulations, is usually presented following the completion of the biennial budget. The report analyses the programme performance of the Organization in terms of the implementation of outputs explicitly identified in the 1998-1999 budget. It reflects modifications made to the programme of work during implementation, including the introduction of new activities.

Providing a qualitative assessment of budget performance by budget section, the report also explains cases of non-implementation of outputs and reviews resources utilized broken down by sources of funding. Also included is information about such activities as international cooperation and inter-agency coordination. The document also provides information about the impact of ongoing reform measures.

The programme budget for 1998-1999 included 22,830 programmed quantifiable outputs. In addition, 457 outputs were carried over from the previous biennium, and 2,079 outputs were added by legislative bodies, bringing the total number of mandated outputs to 25,366. The Secretariat initiated another 1,732 outputs.

A total of 24,025 outputs were implemented utilizing 43,589 work-months, which comprises 70 per cent of all work-months available to the Secretariat, with the remaining 30 per cent devoted to international cooperation, inter-agency coordination and technical cooperation activities. The average implementation rate was 88 per cent, ranging from 68 per cent to 100 per cent among the budget sections -- the highest level in the last decade. The Oversight Office believes that the strengthening of accountability at the level of individual staff members, through the performance planning and appraisal system, and the institutionalization of computerized programme performance monitoring and reporting systems at the departmental level, contributed to improved programme implementation.

Also according to the report, a total of 49,140 work-months were reported by programme managers as used to carry out the programme of work in 1998-1999. Of those work-months, 88 per cent were provided by the Professional staff, and 12 per cent by consultants. By source of funding, 72 per cent of work-months were financed from the regular budget and 28 per cent from extrabudgetary resources.

The Secretary-General points out that, positive results notwithstanding, it is clear that performance management and monitoring require improvement. A first priority would be application of performance measurements in assessing the achievement of stated objectives and providing sound information on resource use. A structured and more informative qualitative assessment of programme performance is needed. The timing, substance and impact of the performance report as a feedback mechanism for future programme planning and budgeting should be reviewed. Best practices in performance monitoring will be studied, and remaining redundancies and duplications should be identified and eliminated to reduce the resources consumed in the monitoring process.

Another document before the Committee is a report of the Secretary-General on ways to better ensure and assess the implementation and quality of mandated programmes and activities (document A/55/85).

Drawing from the findings contained in the report of the Secretary-General on the programme performance of the United Nations for the biennium 1998-1999 (A/55/73), the document proposes that the performance report for the biennium 2000- 2001 also include, in addition to the analysis of output implementation and the qualitative assessment, reporting on the attainment of the expected accomplishments set out in the programme budget. The purpose of the recommendation is to enhance the use of the performance report during consideration of future programme budgets by the Fifth Committee. The report also urges programme managers to use computerized monitoring systems and to establish assessment criteria for measuring expected accomplishments.

Also before the Committee was a report of the Secretary-General on the impact of the format of the medium-term plan on programme planning, budgeting, monitoring and evaluation cycle (document A/C.5/55/14). The report was submitted pursuant to a request of the CPC for an analysis of the new medium-term plan format. The Secretary-General concludes that the new format fully complies with the Regulations and Rules Governing Programme Planning, the Programme Aspects of the Budget, the Monitoring of Implementation, and the Methods of Evaluation. Since the different phases of the programme planning, budgeting, monitoring and evaluation cycle are closely connected, the changed format of the proposed medium-term plan for 2002-2005 would provide an effective implementation of the subsequent phases of the cycle.

The Committee also has before it letters dated 23 October 2000 from the Chairmen of the First Committee (document A/C.5/55/17), Second Committee (document A/C.5/55/18), Third Committee (document A/C.5.55/20) and Sixth Committee (document A/C.5/55/19), attaching comments on the programmes of the medium-term plan relevant to their work.

Introduction of Reports

JEAN-PIERRE HALBWACHS, United Nations Controller, introduced the proposed medium-term plan for the period 2002-2005. The medium-term plan -- once it was approved by the General Assembly -- constituted the principal policy directive of the United Nations, he said. It gave the overall direction for the work of the Organization and served as framework for the formulation of the biennial programme budgets. The structure and format of the plan had been strengthened when compared with plans of previous periods. Special effort had been made to better capture the essence of each programme and subprogramme and to reflect the purpose or reason for the work undertaken by the Organization. The text of each subprogramme had been grouped around objectives, strategies, and expected accomplishments.

The plan also included indicators of achievement for each of the expected accomplishments, which could assist in determining whether or not the accomplishments were attained during the four-year period of the plan, he continued. A concerted effort had been made to have the presentation better meet all the requirements of the Regulations and Rules Governing Programme Planning. Compliance with the Regulations and Rules had not simply been an end in itself, but was meant to render the medium-term plan a clearer document and thereby provide a better basis for preparing the biennial programme budgets. If the Organization had a better sense of where it is heading and what kind of activities would be best suited to meet those objectives, it would also be in a better position to assess its success in implementing its programmes.

The enhancements in the presentation of the medium-term plan had not been achieved without some effort, he said. The results were more successful in some cases than in others. Nevertheless, he hoped that further improvements could be made through experience and dialogue with Member States, and that the Secretariat could also make improvements in the presentation of the proposed programme budget for 2002-2003.

The Committee for Programme and Coordination had requested, at its most recent session, that the Secretariat undertake an analysis of the implications of the new format of the proposed medium-term plan on the entire cycle of programme planning, budgeting, monitoring and evaluation, he said. That analysis had underlined the link between the different stages of the programme planning, budgeting, monitoring and evaluation cycle. It also indicated that the increased sense of direction of the proposed medium-term plan would provide a solid basis for implementing the other phases of the cycle.

On the content of the plan, he said that the medium-term plan reflected the challenges which Member States, through their legislative mandates, had entrusted to the United Nations for action. The plan covered a broad range of activities which were intricately interconnected. The special situation of Africa would continue to receive attention and assistance. In addition to the existing New Agenda for Development for Africa, a new subprogramme, under programme 9 on Trade and Development, was being proposed in response to a request of the General Assembly at its fifty-fourth session.

The medium-term plan reflected a recognition of the dignity and worth of the human person, he said. It reflected an increased awareness of the need for gender sensitivity when designing programmes, projects and activities. The programmes had also been designed to make the best use of technological developments to enhance the effectiveness of the Organization. The Secretary-General had proposed that the priorities for the current period 1998-2001 should be maintained in the period from 2002 to 2005.

The Secretary-General has made an effort to submit a proposed policy document that was clear and transparent, that was in full compliance with the Regulations and Rules, and that addressed the issues and problems ahead, he said. By approving the medium-term plan, the General Assembly would not only entrust the Secretary-General and his staff with the implementation of the programmes, but also commit Member States to provide active and continuous political and financial support. In an organization consisting of sovereign and equal members, the work of the Secretariat could not be a substitute for Member States’ will to pursue the Organization’s objectives. Programme implementation was not the exclusive preserve of the Secretariat nor of Member States. It was a collective responsibility, and its implementation would be a measure of the success of the international community working together in a harmonized partnership between Member States and Secretariat.

TOMMO MONTHE, President of the Committee for Programme and Coordination, then introduced that body’s report. He said the CPC had adopted all of its conclusions and recommendations by consensus. The 25 programmes covering all of the activities envisaged were studied carefully, both in terms of relevance and compliance with the rules and regulations governing planning within the Organization. However, programme 19 on human rights was deferred for more detailed consideration by the General Assembly, which had more expertise in that area. The other 24 programmes were recommended for adoption with adjustments suggested.

Regarding programme performance for 1998-1999 and the Secretary-General’s report on steps to be taken to ensure that programmes and activities were fully implemented, the CPC had formulated its conclusions after careful consultation. Regarding evaluation, the CPC found that the Office of Internal Oversight Services had made relevant recommendations and their implementation should help to improve management. With regard to the budget outline for 2002-2003, the CPC recommended that the Assembly examine all aspects of proposals presented by the Secretary- General. Resources should make it possible to implement all programmes. The CPC stressed the need of all Member States to prove their commitment to the United Nations by honouring their financial obligations. It recommended approving the priorities of the Secretary-General, and stressed that the contingency fund should be 0.75 per cent of the amount of the budget outline.

Concerning coordination questions, the CPC had considered several documents. Regarding the United Nations system-wide initiative for Africa, the CPC emphasized the need to mobilize resources for that programme. It also noted the Secretary- General’s report on the system-wide medium-term plan for the promotion of women, and recommended that plan be submitted to it for consideration before being submitted to the Economic and Social Council and the General Assembly.

On improving working methods and procedures of the CPC, he said that the CPC suggested a series of measures concerning the representation of Member States in it, on continuity and degree of expertise, on the need to improve presentation of

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the medium term plan, and on the establishment by Economic and Social Council and the Assembly committees of a specific item on their agendas relating to the plan. The Economic and Social Council, one of the parent bodies of the CPC, had considered the CPC report during its substantive session in July.

Statement

Speaking on behalf of the European Union and associated States, CATHERINE GRAS (France) said that the conclusions and recommendations of the CPC would be invaluable for the forthcoming discussions in the Fifth Committee. The Union welcomed the revised version of the 25 sections which made up the proposed medium- term plan of the United Nations for 2002-2005. They had now been organized according to a clearly defined structure, and followed general guidelines for each subprogramme according to definitions of the objectives to be achieved and the strategy to be implemented. Expected results and performance indicators were also taken into account.

She noted with satisfaction that the plan had been compiled in accordance with article IV of the Regulations and Rules Governing Programme Planning, the Monitoring of Implementation and Methods of Evaluation. Expected accomplishments and indicators of achievements increased transparency in programme design. Such unified presentation constituted a major improvement over previous medium-term plans.

The European Union was grateful to the Secretariat for the efforts it had undertaken, she said. The unified presentation allowed for an effective implementation of the programme planning, budgeting, monitoring and evaluation cycle. Admittedly, the quality may vary from one section to another. For some of them, some improvements were needed, and the European Union was ready to follow the recommendations of the CPC, bearing in mind they were part of a negotiated package.

She said that the role of evaluation was becoming increasingly important. There remained room for further improvement in evaluation procedures, and she endorsed recommendations of the CPC in that respect. She also welcomed the programme performance report for 1998-1999. The European Union, in particular, appreciated the inclusion of qualitative assessments, as requested by the General Assembly in resolution 53/207. That evaluation procedure should be further implemented in the future. Various paragraphs of the introductory section clearly and succinctly outlined the major challenges facing the United Nations during the period covered by the plan and set out the general guidelines and strategy to meet those challenges.

The new layout of the plan could be an opportunity for Member States to reflect on setting the priorities of the Organization in order, she said. Setting too general priorities, covering practically all areas of the activities of the United Nations, did not make it any easier to draft the corresponding budgets. It also scattered inadequate resources. In that respect, the Union strongly endorsed the recommendation regarding keeping the priorities established by the Secretary- General for 2002-2005, while noting that “this should not be taken to mean the maintenance of the status quo in programme implementation”. The biennial budget for 2002-2003 should reflect the current priorities, in particular the maintenance of international peace and security, promotion of human rights, effective coordination of humanitarian assistance, drug control and crime prevention.

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