Reforming the United Nations : The Challenge of Working Together [1 ed.] 9789004184886, 9789004178434

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Reforming the United Nations

Reforming the United Nations The Challenge of Working Together

Edited by

Joachim Müller

LEIDEN • BOSTON 2010

This book is printed on acid-free paper. Library of Congress Cataloging-in-Publication Data Reforming the United Nations : the challenge of working together / edited by Joachim Muller. p. cm. Includes bibliographical references and index. ISBN 978-90-04-17843-4 (hardback : alk. paper) 1. United Nations—Reform. 2. United Nations—Management. I. Müller, Joachim. JZ4984.5.R435 2010 352.3’672113—dc22 2010004958

ISBN 978 90 04 17843 4 Copyright 2010 by Koninklijke Brill NV, Leiden, The Netherlands. Koninklijke Brill NV incorporates the imprints Brill, Hotei Publishing, IDC Publishers, Martinus Nijhoff Publishers and VSP. All rights reserved. No part of this publication may be reproduced, translated, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without prior written permission from the publisher. Authorization to photocopy items for internal or personal use is granted by Koninklijke Brill NV provided that the appropriate fees are paid directly to The Copyright Clearance Center, 222 Rosewood Drive, Suite 910, Danvers, MA 01923, USA. Fees are subject to change. printed in the netherlands

TABLE OF CONTENTS Page Table of Contents .....................................................................................

V

Preface ......................................................................................................

VII

List of Abbreviations ................................................................................

XII

I Introduction: Reforming the United Nations ............................................

1

A. The UN System ...................................................................................

2

B. Interests in Reform..............................................................................

3

C. Process of Reform ...............................................................................

4

II The History of UN Reform Efforts, 1950 to 2006....................................

6

A. Cold War, North-South Conflict and the New Unity, 1950 to 1996 ...

6

B. The Quiet Revolution, 1997 to 2002 ...................................................

9

C. Security Council Reform, 1993 to 2006..............................................

12

D. Struggle for Legitimacy and Effectiveness, 2003 to 2006 .................. III New Reform Initiatives: The Challenge of Working Together, 2006 to 2009 ..................................................................................................... A. The New Secretary-General Ban Ki Moon .........................................

18 31 31

B. Follow-up on Previous Reform Initiatives, 2006 to 2009 ...................

33

C. Security Council Reform, 2006 to 2009..............................................

40

D. System-Wide Coherence of UN Operational Activities, 2006 to 2009 ................................................................................................ E. Inter-Agency Consultations: CEB Priority Themes, 2006 to 2009 .....

46

F. The Limits of UN Reform...................................................................

89

75

Appendices I UN System Organizations and Participation in Inter-Agency Coordination .............................................................................................

97

II UN Inter-Agency Co-ordination Mechanisms..........................................

133

III International Environmental Governance.................................................

159

IV Evolving Aid Architecture........................................................................

173

TABLE OF CONTENTS

VI

Page Documents I One United Nations: Catalyst for Progress and Change, Chief Executive Board of the UN System, July 2005....................................

188

II Delivering as One, High-Level Panel on United Nations System-Wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, UN Report A/61/583, 20 November 2006........

285

III Recommendations Contained in the Report of the High-Level Panel on United Nations System-Wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, UN Secretary-General Report A/61/836, 3 April 2007 ..............................

345

IV Question of Equitable Representation on and Increase in the Membership of the Security Council and other Matters Related to the Security Council, UN General Assembly Decision A/DEC/62/557, 15 September 2008 ....................................................

351

V System-Wide Coherence, UN General Assembly Resolution A/RES/62/277, 15 September 2008 .....................................................

353

VI Human Resources Management, UN General Assembly Resolution A/RES/63/250, 24 December 2008......................................................

359

VII System-Wide Coherence, UN General Assembly Resolution A/RES/63/311, 14 September 2009 .....................................................

373

Bibliography .............................................................................................

378

Index of Names.........................................................................................

385

PREFACE The UN system is in need of reform. This has been the consensus throughout the 60+ years of its existence. Reaching agreement by reconciling the different priorities and interests among its member states has been difficult. Other stakeholders are actively engaged in UN reform, including the UN secretariats, non-governmental organizations, civil society and the public at large, as well as the group often referred to collectively as the taxpayer. Any compromises reached were often achieved by a tortuous process and tend to reflect the lowest common denominator. Then, actual implementation often fell short of initial expectations. What are the limits of UN reform? Do structural barriers exist that are difficult to overcome? Could the UN be ultimately unreformable? Reforming the United Nations: The Challenge of Working Together addresses those questions and makes some suggestions about what can be done to remedy the situation. This is done by presenting the reform efforts in recent years (2006 to 2009) associated with system-wide coherence, inter-agency co-ordination, management reform and the Security Council reform. Moreover, the history of UN reform, which has previously been described in detail, is briefly summarized. The current publication is the sixth volume in a series on reforming the UN.1 The first three volumes present 50 earlier reform initiatives and key reform documents originating during the period from 1950 to 1996. The period from 1997 to 2002 is captured in the fourth volume, which presents, in particular, Secretary-General Kofi Annan’s reform efforts, known as the Quiet Revolution. The fifth volume describes the period from 2003 to 2006 and efforts to re-establish legitimacy and effectiveness in the wake of the Iraq invasion and the management shortcomings of the UN Oil-for-Food Programme. Together, the six volumes of Reforming the United Nations bring together a wealth of information and provide an authentic, comprehensive and in-depth presentation of UN reform initiatives, with over 6,000 pages of analysis, description and primary documents on UN reform. The current publication, Reforming the United Nations: The Challenge of Working Together, includes three chapters, four appendices and seven documents. Chapter I (Introduction: Reforming the United Nations) provides a short description of the context of UN reform. The summary of earlier reform efforts is presented in Chapter II (The History of UN Reform Efforts, 1950 to 2006). Chapter III (New Reform Initiatives: The Challenge of Working Together, 2006 to 2009) is the centrepiece of the publication and presents the most recent reform initiatives. In the following paragraphs, the various sections of Chapter II and III are introduced. Section A of Chapter II (Cold War, North-South Conflict and the New Unity, 1950 to 1996) describes initiatives launched by the Soviet Union during the East-West antagonism in the 1950s, the UN’s expansion in the development field following the decolonization period in the 1960s, and negotiations on a New International Economic 1 Joachim Müller, Reforming the United Nations, Brill, Leiden, The Netherlands, including New Initiatives and Past Efforts, volumes I to III, 1997; The Quiet Revolution, volume IV, 2001; The Struggle for Legitimacy and Effectiveness, volume V, 2006.

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REFORMING THE UNITED NATIONS

Order as part of the North-South conflict in the 1970s. The 1980s were characterized by stagnation, financial crisis and the retreat of the United States, which triggered a reform of the budgetary process and the downsizing of the Organization. With the end of the Cold War, the rediscovery and renaissance of the UN were hailed; the first half of the 1990s saw a major expansion of the Organization and the reform associated with the Agenda for Peace launched by Secretary-General Boutros Boutros Ghali. In the wake of disappointment with the peacekeeping operations in Somalia and the former Yugoslavia, there was a marked retreat from assertive multilateralism in the second half of the 1990s. Section B of Chapter II (The Quiet Revolution, 1997 to 2002) outlines how incoming Secretary-General Kofi Annan moved quickly in the late 1990s to address some of the UN’s shortcomings. The fragmented Organization was made more coherent, with a better co-ordinated development system and more effective humanitarian structures. The fight against the HIV/AIDS pandemic was energized, and a new concept of partnership between the UN and international business developed under the Global Compact. Other reforms included the revamping of peacekeeping operations following the Brahimi Report. The Quiet Revolution reached its peak with the Millennium Summit in 2000, which approved the Millennium Development Goals to combat poverty, hunger, disease and environmental degradation. Section C of Chapter II (Security Council Reform, 1993 to 2006) captures the efforts of Germany and Japan in particular, as well as India and Brazil, to gain permanent seats and veto rights at the Security Council. It also describes the efforts of Italy and other middle-sized countries to counter this initiative. The existing permanent members – United States, China, Russia, United Kingdom and France – could each block any reform and were hesitant to enlarge the exclusive club. In the end, the 2005 World Summit failed once again to conclude the reform process that had been launched back in 1993. Section D of Chapter II (Struggle for Legitimacy and Effectiveness, 2003 to 2006) starts with the failure of the Security Council to either endorse or prevent military action in Iraq in the wake of the September 11 terrorist attacks. The following reform initiative addressed issues such as the right of self-defence, the legitimacy of preemptive action and the response to terrorism. In the midst of this exercise, questions of integrity, ethics and management competence were raised in connection with the investigation of the UN Oil-for-Food Programme. The World Summit in 2005 recognized, albeit mainly symbolically, an international ‘responsibility to protect’ populations from genocide and the Human Rights Council replaced the discredited Commission on Human Rights. The hoped-for grand reform bargain, however, could not be achieved. Section A of Chapter III (The New Secretary-General Ban Ki-moon) presents the first reform initiatives of incoming Secretary-General Ban Ki-moon, including the reorganization of the disarmament and peacekeeping areas. Section B of Chapter III (Follow-up on Previous Reform Initiatives, 2006 to 2009) describes the period after the 2005 World Summit and covers reform activities relating to the negotiation of a terrorism convention, operationalizing the concept of ‘responsibility to protect’, launching the audit committee and the oversight review, carrying out the approved mandate review, and implementing management reform. Success was

PREFACE

IX

limited except for the human resources reform approved in December 2008, which included the harmonization of staff benefits as well as a simplified staff contract structure (see also the UN General Assembly resolution shown as Document VII). Section C of Chapter III (Security Council Reform, 2006 to 2009) provides an update on what happened after the 2005 World Summit failure to agree to expand the number of permanent seats on the Security Council. Consultations in the Open-ended Working Group had come to a standstill. A new initiative launched by Germany, known as the ‘overarching process’, is described as well as the start of informal intergovernmental negotiations in September 2008 (see also the UN General Assembly decision shown as Document IV). By the end of 2009, no agreement was in sight. Faced with this reality, negotiations increasingly focused on an intermediary model which would expand the Security Council by longer-term non-permanent seats only. Section D of Chapter III (System-Wide Coherence of UN Operational Activities, 2006 to 2009) details the new reform initiative targeting UN system-wide coherence launched by the 2005 World Summit. The Chief Executive Board (CEB), a coordinating body of UN organizations, had presented an overview of system coordination (see also the CEB report shown as Document I) and the High-level Panel on System-wide Coherence developed a set of reform proposals (see also the report of the High-level Panel shown as Document II and report of UN Secretary-General shown as Document III). This resulted in approval by the Assembly in April 2007 of a number of loosely related reform initiatives, covering international environmental governance, a unified gender organization, development funding, governance and institutional reform, simplifying and harmonizing business practices, and ‘Delivering as One’ at the country level (see also the UN General Assembly resolution shown as Document V). The latter described the consolidation of UN programme activities at the country level with one leader, one programme, one budget and one office. The initiative was viewed with reservations by the developing countries organized in the Group of 77 and the Non-aligned Movement, but was strongly supported by European donor countries. Indeed, poor co-ordination and high transaction costs had prompted donors to explore new operating principles within the OECD, as outlined in the 2005 Paris Declaration on ‘aid effectiveness’ and applied in new organizations such as the Global Fund to Fight AIDS, Tuberculosis and Malaria. An initial assessment of the reform initiatives on UN system-wide coherence is given, which paints a sobering picture. In September 2009 the Assembly approved a new gender architecture which was considered a major breakthrough (see also the UN General Assembly resolution shown as Document VII). On the other hand, the reform of international environmental governance stalled. Advances were made neither on funding nor on governance. Very little progress was achieved in the harmonization of business practices with no institutional follow-up. For ‘Delivering as One’ pilot projects, some progress was reported on national ownership and alignment with national priorities. This limited progress in coherence was offset, however, by increased transaction costs generated by countless co-ordination meetings at the country and headquarters levels. Section E of Chapter III (Inter-Agency Consultations: CEB Priority Themes, 2006 to 2009) shows that the system-wide coherence initiative had a visible impact on the work of inter-agency co-ordination mechanisms. CEB aimed at providing synergy, avoiding duplication and targeting mandate gaps. Moreover CEB increasingly became

X

REFORMING THE UNITED NATIONS

a voice in intergovernmental conferences. This is illustrated in the collaborative efforts on three priority themes, namely climate change, food security, and global financial and economic crisis co-ordination. The CEB co-ordination effort had led to a more systematic conceptualization and presentation of the work the UN system achieved. It did not, however, advance substantive work through, for example, joint programming. Section F of Chapter III (The Limits of UN Reform) provides some thoughts on the challenges that have to be addressed in UN reform. Whereas interesting insights can be gained from previous efforts, the recent focus was on improving the UN’s systemwide coherence and inter-agency co-ordination. It is argued that the hurdles faced by system-wide reform are considerable. First of all, there is the task of reconciling the different priorities of member countries, which in the case of the UN number 192. Second, there is a requirement for coherence at the inter-agency level. This includes the additional complexity at the intergovernmental level: one member state is sometimes represented with little co-ordination by different ministries at different agencies. At the inter-secretariat level, not unlike the intergovernmental level, the UN system is managed by a collective of equals with different mandates and interests; nevertheless, consensus between agencies is the basis for decision-making. This makes coordination a lengthy, cumbersome and costly process, as illustrated by the experience under the ‘Delivering as One’ initiative. Consolidation and merging of mandates and structures appear to be a precondition for coherent and efficient action. This would require a fundamental restructuring of the UN system, and that would face tremendous barriers. Incremental consolidations, restricted to a limited number of entities and focusing on a narrow subject area, appear to be a difficult but workable option: difficult as demonstrated by the failure to reform international environmental governance; workable as proven by the consolidation of the UN gender architecture. This is the challenge. Four appendices are included. Information on the UN system organizations and their participation in inter-agency co-ordination mechanisms is provided in Appendix I. This includes UN secretariat offices, UN funds and programmes and UN specialized agencies. Appendix II describes inter-agency mechanisms, including their evolution. This covers the CEB and the separate descriptions of 37 inter-agency bodies and working groups. In Appendix III, background information is provided on international environmental governance, which was one of the key reform initiatives under the UN system-wide coherence initiative. It describes the UN Environment Programme (UNEP), the system of governance, the fragmented system of multilateral environmental agreements and the concept of a new UN Environment Organization (UNEO). Finally, for a better understanding of the ‘Delivering as One’ initiative launched in the context of the reform of UN system-wide coherence, details are provided in Appendix IV on the evolution of aid architecture. This includes a description of the UN development system and the operating principles of the 2005 Paris Declaration on ‘aid effectiveness’. The new operating principles are also reflected in the working of new organizations which have emerged outside the UN system. One example, the Global Fund to Fight AIDS, Tuberculosis and Malaria, is described. Many thanks to Ms Florence Grosfilley and Ms Zofia Laubitz for their help and to Nuffield College, Oxford, for providing supportive facilities for the final preparation of the publication. I trust that Reforming the United Nations: The Challenge of Work-

PREFACE

XI

ing Together will be of use to all those interested in the reform of the UN. As always, it is understood that the views expressed here do not necessarily reflect those of the Organization I am affiliated with. Geneva, 2010

Joachim Müller

LIST OF ABBREVIATIONS AAA ACABQ ACC ADB AFDB AIDS AMFA BOA CAADP CAC CANZ CAP CARICOM CBD CCA CCAQ CCISUA CCIT CCM CCO CCPOQ CCSA CCST CDM CEB CEC CERF CGIAR CIFOR CITES CITO CMS COBO COP CPA CPD CPF CSD CSP CSW

Accra Agenda for Action Advisory Committee on Administrative and Budgetary Questions Administrative Committee on Coordination Asian Development Bank African Development Bank Acquired Immune Deficiency Syndrome Affordable Medicines Facility for Malaria Unit Board of Auditors Comprehensive Africa Agriculture Development Programme Children and Armed Conflicts Canada, Australia, New Zealand Consolidated Appeals Process Caribbean Community Convention on Biological Diversity Common Country Assessment Consultative Committee on Administrative Questions Coordination Committee for International Staff Unions and Associations of the United Nations Sysatem Comprehensive Convention on International Terrorism Country Coordinating Mechanism Committee of Co-sponsoring Organisations Consultative Committee on Programme and Operational Questions Committee for the Coordination of Statistical Activities Climate Change Support Team Clean Development Mechanism United Nations System Chief Executives Board for Coordination Commission of the European Communities Central Emergency Response Fund Consultative Group on International Agricultural Research Center for International Forestry Research Convention on International Trade in Endangered Species of Wild Fauna and Flora Chief Information Technology Officer Convention on Migratory Species Country Office Business Operations Conference of Parties Comprehensive Framework for Action Country Programme Documents Collaborative Partnership on Forests Commission on Sustainable Development Child Survival Partnership Commission on the Status of Women

LIST OF ABBREVIATIONS

CTBTO CTC CTED CTITF DAC DAW DDA DESA DFS DGACM DM DOALOS DOCO DPA DPAC DPC DPI DPKO DRC DSD DSS EC ECA ECE ECESA ECG ECHA ECLAC ECOSOC ECPS EEG EIB EMG EOSG EPO ERC ERP ESCAP ESCWA EU EUFMD FAO FDI

XIII

Preparatory Commission for the Comprehensive Nuclear-Test-Ban Treaty Organization Counter-Terrorism Committee Counter-Terrorism Committee Executive Directorate Counter-Terrorism Implementation Task Force Development Assistance Committee Division for the Advancement of Women Department for Disarmament Affairs Department of Economic and Social Affairs Department of Field Support Department for General Assembly and Conference Management Department of Management Division for Ocean Affairs and the Law of the Sea Development Operations Coordination Office Department of Political Affairs Decade Programme on Advocacy and Communication (Water) Decade Programme on Capacity Development (Water) Department of Public Information Department of Peacekeeping Operations Democratic Republic of the Congo Division for Sustainable Development Department of Safety and Security European Commission United Nations Economic Commission for Africa United Nations Economic Commission for Europe Executive Committee on Economic and Social Affairs Ecosystem Conservation Group Executive Committee on Humanitarian Affairs United Nations Economic Commission for Latin America and the Caribbean Economic and Social Council Executive Committee on Peace and Security Eastern European Group European Investment Bank Environmental Management Group Executive Office of the Secretary-General European Patent Office Emergency Relief Coordinator Enterprise Resource Planning United Nations Economic and Social Commission for Asia and the Pacific United Nations Economic and Social Commission for Western Asia European Union European Commission for Foot and Mouth Disease Food and Agriculture Organization Foreign Direct Investment

XIV

FICSA FMOG FTI G4 G8 G 13 G 20

G 77 GAO GATT GAVI GCOS GEAR GEF GEMS GFCS GFEP GHG GISP GIVS GIWA GMEF GNESD GNP GOOS GREP GRULAC GTOS GUAM HCHR HIV HLCM HLCP HLTF IAAG IAAH IAAP IACSD IACWGE IADB

REFORMING THE UNITED NATIONS

Federation of International Civil Servants’ Associations Fiduciary Management Oversight Group Fast Track Initiative Group of 4 (Brazil, Germany, India, Japan) Group of 8 (Canada, France, Germany, Italy, Japan, Russia, United Kingdom, United States of America) Group of 13 (Belgium, Canada, Denmark, Finland, France, Germany, Ireland, Luxembourg, Netherlands, Norway, Sweden, Switzerland and the United Kingdom) Group of 20 (Argentina, Australia, Brazil, Canada, China, France, Germany, India, Indonesia, Italy, Japan, Mexico, Russia, Saudi Arabia, South Africa, South Korea, Turkey, United Kingdom, United States of America) Group of 77 General Accounting Office General Agreement on Tariffs and Trade Global Alliance for Vaccines and Immunization Global Climate Observing System Gender Equality Architecture Reform Global Environment Facility Global Environment Monitoring System Global Framework for Climate Services Global Forest Expert Panels Greenhouse Gas Global Invasive Species Programme Global Immunization Vision and Strategy Global International Water Assessment Global Ministerial Environmental Forum Global Network on Energy for Sustainable Development Gross National Product Global Ocean Observing System Global Rinderpest Eradication Programme Group of Latin American and Caribbean Countries Global Terrestrial Observing System Georgia, Ukraine, Azerbaijan, Moldova High Commissioner for Human Rights Human Immune-Deficiency Virus High-Level Committee on Management High-Level Committee on Programmes High-Level Task Force Inter-Agency Advisory Group (on AIDS) International Alliance Against Hunger Inter-Agency Advisory Panel (on selection of Resident Coordinators) Inter-Agency Committee on Sustainable Development Inter-Agency Committee on Women and Gender Equality Inter-American Development Bank

LIST OF ABBREVIATIONS

IAEA IAH IAHS IANWGE IAPWG IASC IASMN IATT IBRD IBSA ICAO ICC ICID ICPO ICRAF ICRC ICRI ICSC ICT ICVA IDA IDP IDU IEG IFAD IFC IFPRI IFRC IGAC IHO IIA ILO IMCI IMF IMIS IMO INEE INSTRAW INTERPOL INTOSAI IOM IPCC IPEC IPGRI IPSAS

XV

International Atomic Energy Agency International Association of Hydrogeologists International Association of Hydrological Sciences Inter-Agency Network on Women and Gender Equality Inter-Agency Procurement Working Group Inter-Agency Standing Committee (for humanitarian affairs) Inter-Agency Security Management Network Inter-Agency Task Team (on HIV/AIDS and Gender) International Bank for Reconstruction and Development India-Brazil-South Africa Dialogue Forum International Civil Aviation Organization International Criminal Court International Commission on Irrigation and Drainage International Criminal Police Organization International Centre for Research in Agroforestry International Committee of the Red Cross International Coral Reef Initiative International Civil Service Commission Information and Communications Technology International Council of Voluntary Agencies International Development Association Internally Displaced Persons Injecting Drug Users International Environmental Governance International Fund for Agricultural Development International Finance Corporation International Food Policy Research Institute International Federation of Red Cross and Red Crescent Societies International Group for Anti-Corruption Cooperation International Hydrographic Organization Institute of Internal Auditors International Labour Organization Integrated Management of Childhood Illness International Monetary Fund Integrated Management Information System International Maritime Organization Inter-Agency Network for Education in Emergencies International Institute for Research and Training for the Advancement of Women International Criminal Police Organization International Organization of Supreme Audit Institutions International Organization for Migration Intergovernmental Panel on Climate Change ILO’s Collaborative Programme for the Elimination of Child Labour International Plant Genetic Resources Institute International Public Sector Accounting Standards

XVI

ISA ISDR ITC ITLOS ITTO ITU IUCN IUFRO IWA IWC IWMI JFFAI JITAP JIU JMP JUNIC LDC LLDC MDG MDTF MEA MIGA NAM NATO NEPAD NGLS NGO OAU OCHA ODA OECD OHCHR OHRLLS OIAA OIC OIOS OIP OLA OOSA OPCW OSAA OSAGI OSRSG OSS

REFORMING THE UNITED NATIONS

International Seabed Authority International Strategy for Disaster Reduction International Trade Centre UNCTAD/WTO International Tribunal for the Law of the Sea International Tropical Timber Organization International Telecommunications Union International Union for Conservation of Nature International Union of Forest Research Organizations International Water Association International Waling Commission International Water Management Institute Joint Funding, Financial and Audit Issues Joint Integrated Technical Assistance Programme Joint Inspection Unit Joint Monitoring Programme (on Water Supply and Sanitation) Joint United Nations Information Committee Least Developed Country Landlocked Developing Country Millennium Development Goals Multi Donor Trust Fund Multilateral Environmental Agreements Multilateral Investment Guarantee Agency Non-Aligned Movement North Atlantic Treaty Organisation New Partnership for Africa’s Development Non-Governmental Liaison Service Non-Governmental Organization Organization of African Unity Office for the Coordination of Humanitarian Affairs Official Development Assistance Organisation for Economic Co-Operation and Development Office of the High Commissioner for Human Rights Office of the High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States Office of Inter-Agency Affairs Organization of the Islamic Conference Office of Internal Oversight Services Office of Iraq Programme Office of Legal Affairs Office for Outer Space Affairs Organisation for the Prohibition of Chemical Weapons Office of the Special Advisor on Africa Office of the Special Adviser on Gender Issues and Advancement of Women Office of the Special Representative of the Secretary-General Office of the United Nations Security Coordinator

LIST OF ABBREVIATIONS

PBA PCG PKO PR PRSP PSI PSIDS PWG RBM RC RCNYO RCSI RIAS RIASCO S5 SAP SBC SCHR SCN SIDS SMART SMG SWAP TCPR UN UNAIDS UNCCD UNCDF UNCED UNCG UNCLOS UNCT UNCTAD UNDAF UNDDA UNDG UNDP UNEG UNEO UNEP UNESCO UNFCCC UNFF UNFIP

XVII

Program-Based Approaches Programme Coordination Groups Peacekeeping Operations Principal Recipients Poverty Reduction Strategy Papers Public Service International Pacific Small Island Developing States Policy Working Group on the United Nations and Terrorism Results-Based Management Resident Coordinator Regional Commissions New York Office Resident Coordinator System Issues Representatives of Internal Audit Services of United Nations Entities and Multilateral Institutions Regional Interagency Coordination and Support Office Small Five States (Costa Rica, Jordan, Liechtenstein, Singapore, Switzerland) Structural Adjustment Programmes Secretariat of the Basel Convention Steering Committee for Humanitarian Response Standing Committee on Nutrition Small Island Developing States Specific, Measurable, Attainable, Relevant, Time-bound Senior Management Group Sector-Wide Programmes Triennial Comprehensive Policy Review United Nations Joint United Nations Programme on HIV/AIDS UN Convention to Combat Desertification United Nations Capital Development Fund United Nations Conference on Environment and Development United Nations Communication Group United Nations Convention on the Law of the Sea United Nations Country Teams United Nations Conference on Trade and Development United Nations Development Assistance Framework United Nations Department for Disarmament Affairs United Nations Development Group United Nations Development Programme United Nations Evaluation Group United Nations Environment Organisation United Nations Environment Programme United Nations Educational, Scientific and Cultural Organization United Nations Framework Convention on Climate Change United Nations Forum on Forests United Nations Fund for International Partnerships

XVIII

UNFPA UNGIWG UNHCHR UNHCR UNIC UNICEF UNICRI UNIDIR UNIDO UNIFEM UNITAR UNMDG UNMISET UNODC UNOG UNON UNOPS UNOV UNRISD UNRWA UNSSC UNU UNV UNWTO UPU USD WBCSD WCO WCRP WEOG WFP WHO WIPO WMO WSIS WSSCC WSSD WTO WWAP WWC WWC WWDR WWF

REFORMING THE UNITED NATIONS

United Nations Population Fund United Nations Geographic Information Working Group United Nations High Commissioner for Human Rights United Nations High Commissioner for Refugees United Nations Information Centres United Nations Children’s Fund United Nations Interregional Crime and Justice Research Institute United Nations Institute for Disarmament Research United Nations Industrial Development Organization United Nations Development Fund for Women United Nations Institute for Training and Research United Nations Special Advisor on Millennium Development Goals United Nations Mission of Support in East Timor United Nations Office of Drugs and Crime United Nations Office at Geneva United Nations Office at Nairobi United Nations Office for Project Services United Nations Office at Vienna United Nations Research Institute for Social Development United Nations Relief and Works Agency for Palestine Refugees in the Near East United Nations System Staff College United Nations University United Nations Volunteers United Nations World Tourism Organization Universal Postal Union United States Dollar World Business Council for Sustainable Development World Customs Organization World Climate Research Programme Western European and Others Group World Food Programme World Health Organization World Intellectual Property Organization World Meteorological Organization World Summit on the Information Society Water Supply and Sanitation Collaboration Council World Summit on Sustainable Development World Trade Organization World Water Assessment Programme World Climate Conference World Water Council World Water Development Report World Wide Fund for Nature

CHAPTER ONE

INTRODUCTION: REFORMING THE UNITED NATIONS The UN is in demand for a wide spectrum of services ranging from standard setting to humanitarian and refugee operations to the struggle against poverty, the implementation of technical co-operation projects in developing countries, disaster relief, the fight against HIV/AIDS, and climate change. The expansion of peacekeeping operations is particular striking. By mid-2009, the number of peacekeepers had risen to over 100,000 involved in 15 missions and peacekeeping now account for over half of the Organization’s activities. At a second glance, however, the situation is less clear. New organizations have emerged and compete with the UN for resources and mandate. In policy making, the Group of Eight now includes over 20 countries, including the large developing nations. In humanitarian assistance, the Red Cross and Red Crescent have increased their activities and new organizations such as the Global Fund to Fight AIDS, Tuberculosis and Malaria (Global Fund) and the Global Alliance for Vaccines and Immunization (GAVI) have established innovative, low-cost mechanisms for delivering health care assistance. The Bretton Woods organizations and the OECD have taken the lead on aid efficiency, and even in peacekeeping NATO has developed competence and activities which had previously been the prerogative of the UN. Moreover, a new universe of non-governmental organizations has emerged. Today, the UN is often only one actor among many, although an important one. Moreover, the global ‘goodwill’ enjoyed by the UN has been tested during recent years. The outbreak of the Iraq war challenged the legitimacy and effectiveness of the UN system as a whole, and the UN’s reputation for efficiency and integrity suffered as a result of shortcomings in some of its major operations ranging from the UN Oil-for-Food Programme to peacekeeping missions. The UN has attempted to adapt; it has a history of reform efforts which covered all aspects of organizational life, including its mandate, governance, resources, structure and process. In the narrow sense, those efforts addressed specific organizational failings or new opportunities. In the wider sense, the reforms aimed at fundamental change by responding to global political, economic and social shifts. These include the manifestation of the North/South divide in the 1970s, the end of the Cold War in the late 1980s, globalization in the 1990s, and the emergence of civil society as a main actor in global affairs as well as a host of new crises such as climate change, the global economic and financial meltdown, food and energy security, the spread of pandemics, global terrorism, the spread of weapons of mass destruction and the outbreak of civil wars around the globe. The manifold reform efforts have, however, often resulted in disappointment and marginal adjustments only. What are the limits of UN reform? Do structural barriers exist that are difficult to overcome? Could the UN be ultimately unreformable? The history of the UN reform provides some insight into these questions. This is particularly true of the recent period when new reform initiatives have looked beyond the UN proper to cover the coherence of the UN system as a whole and address the challenges faced by a multitude of agencies working together.

REFORMING THE UNITED NATIONS

2

Can real reform be achieved? Or is the history of UN reform ‘testimony to the dysfunctional and perhaps ultimately unreformable character of the organizations’.1 The reform efforts since the 2005 World Summit, covering the period 2006 to 2009, will be assessed to better understand the issues involved. Insight can also be gained from the earlier reviews in this series dating back to the foundation of the Organization.2 The reform efforts during the recent period include something new. In addition to initiatives limited to the UN only, new reform efforts aimed at addressing the coherence of the UN system of independent agencies. A review of those efforts promises to provide new insight into the limits of UN reform. A. THE UN SYSTEM

The UN was established in 1945, after World War II, to replace the League of Nations, maintain peace and security by preventing war between countries, foster economic and social development, promote respect for human rights and provide a platform for dialogue.3 It is at the centre of the UN system, which now includes a complex network of 14 international organizations,4 working in areas such as health, education, food, labour, energy, aviation, international trade, intellectual property and postal administration. In addition, the Bretton Woods organizations5 are linked to the UN and deal with issues of finance and economy. The system brings together organizations that were newly created in the post-war period, such as the FAO and UNESCO; those whose foundation predates this period, such as the ITU, which was founded in 1865 and the ILO, founded in 1919; and more recently created specialized agencies, such as UNWTO, founded in 2003. The UN system organizations are independent, each with its own governing body of member states and its own secretariat of international civil servants. The UN itself has undergone a dramatic expansion and developed into a complex and fragmented institution with a global presence. From its initial membership of 51 states, the Organization has become truly global now, with a membership of 192 1

Francis Fukuyama, ‘Review of Joachim Müller’s Reforming the United Nations: New Initiatives and Past Efforts’, Foreign Affairs, May/June 1998, Volume 77, Number 3. 2 Joachim Müller, Reforming the United Nations, Kluwer Law International, The Hague, The Netherlands, and Martinus Nijhoff Publishers, Leiden, The Netherlands, including New Initiatives and Past Efforts, Volumes I to III, 1997; The Quiet Revolution, Volume IV, 2001; The Struggle for Legitimacy and Effectiveness, Volume V, 2006. 3 For a detailed description of the UN system, see Appendix I: UN System Organizations and Participation in Inter-Agency Co-ordination. 4 Food and Agriculture Organization (FAO), International Atomic Energy Agency (IAEA), International Civil Aviation Organization (ICAO), International Fund for Agricultural Development (IFAD), International Labour Organization (ILO), International Maritime Organization (IMO), International Telecommunication Union (ITU), United Nations Education, Scientific and Cultural Organization (UNESCO), United Nations Industrial Development Organization (UNIDO), United Nations World Tourist Organization (UNWTO), Universal Postal Union (UPU), World Health Organization (WHO), World Intellectual Property Organization (WIPO), World Meteorological Organization (WMO), World Trade Organization (WTO). 5 The International Monetary Fund (IMF), International Bank for Reconstruction and Development (IBRD) and World Bank, with the affiliated organizations International Development Association (IDA) and International Finance Corporation (IFC).

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states. Member states are represented in the governing body, which includes the General Assembly (the main deliberative assembly), the Security Council (decides on issues of peace and security) and the Economic and Social Council (ECOSOC) (promotes international economic and social co-operation and development), all of which are located in New York. A fourth principal organ, the International Court of Justice, is located in The Hague. The Secretary-General heads up the secretariat, which services meetings, prepares negotiations, provides studies and implements decisions. The Headquarters is located in New York and main offices in Geneva, Vienna and Nairobi. The Organization has established a number of semi-independent programmes and funds.6 Although under the authority of the General Assembly, those organizations have their own governing bodies, budgets and secretariat. In 2009, the UN budget amounted to approximately USD 20 billion with a staff of 70,000.7 Of the total budget, approximately half is funded from assessed contributions, which are determined based on a member state’s capacity to pay. Consequently, 108 of the 192 members pay for roughly 75 per cent of the assessed budget. B. INTERESTS IN REFORM Whereas there is interest in UN reform in various quarters, different stakeholders mean very different things by the term. First of all, there is the membership, whose concerns differ from one country or region to another. The United States is most interested in security and human rights matters and less so in economic and social issues. Indeed, the UN has been criticized for over-regulating the global economy and interfering with issues considered subject to national sovereignty. Secretariat and management reform is also high on the agenda of the United States, which criticizes the inefficiency and mismanagement of a bloated bureaucracy. New concerns have been expressed about the perceived lack of accountability and openness in international institutions. Reform is often proposed. In the name of management reform, efforts have been made to downsize the Organization by de-emphasizing economic and social activities and shifting priorities in the direction of human rights, the promotion of economic privatization, and political democracy. The US is part of the Northern group of members, which also includes Japan, the EU countries and some of its neighbours as well as the CANZ group (Canada, Australia and New Zealand). The countries of the South aim to act jointly through the Group of 77 (G77) and China and the Non-Aligned Movement (NAM) caucuses. The G77 is the largest group 6 The United Nations Children’s Emergency Fund (UNICEF), the United Nations Development Programme (UNDP), the United Nations High Commissioner for Refugees (UNHCR) and the World Food Programme (WFP). 7 Of the total USD 10.0-billion assessed contribution, USD 2.0 billion is provided for the UN secretariat and USD 8.0 billion for peacekeeping operations. Of the USD 10-billion voluntary contributions, the major share is related to semi-independent programmes and funds such as UNDP, UNICEF, UNHCR, the United Nations Population Fund (UNFPA) and the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA). Of the 70,000 UN staff, 20,000 are with the UN secretariat, 20,000 at peacekeeping operations (in addition to approximately 100,000 military personnel provided by governments to UN peacekeeping missions) and 30,000 at semi-independent programmes and funds. 8 United States, Japan, Germany, United Kingdom, France, Italy, Canada, Spain, China, Mexico.

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of states in the UN, with 130 members out of a total UN membership of 192. The Group aims to promote their collective economic interests and enhance their joint negotiating capacity on all major international economic issues within the UN system and to promote South-South co-operation for development. The NAM includes 112 members, with membership essentially identical to the G77. Established to develop an independent path between the superpowers of the Cold War, the focus shifted away from essentially political issues to the advocacy of solutions for global economic problems. Reform proposals from the South aim to increase development efforts, including demands for additional development assistance, trade concessions and debt relief. New concerns have been expressed about the lack of accountability of the Security Council. The North’s proposals in the area of security and human rights are often seen by the South as an attempt by the powerful countries to make the UN increasingly interventionist. Institutional reform proposals which aim to reduce the size of governing bodies or the role of the General Assembly, to merge organizational entities or to identify duplications are seen as weakening the position of the smaller developing countries; management reforms are sometimes viewed as strengthening the influence of the biggest donors. There is a sort of mutual veto system between the North and the South on reform; the South often aims to preserve the status quo. There are, however, differences of interest between the memberships of the major groupings. Emerging economic powers of the South, such as China, India and Brazil, are interested in trade issues and intellectual property rights, whereas least developed countries are concerned with development assistance. Major countries with an interest in joining the Security Council as permanent members are not necessarily supported by the medium-sized members, such as Pakistan or Argentina. Differences in interests are also prevalent among the countries of the North. On development issues, the Scandinavian countries in particular tend to support the position of the South, whereas on human rights issues they are likely to side with the United States. Moreover, the grouping of member states is not static. During the Cold War, the Soviet Union and its allies constituted a grouping which often supported the position of the South, but also showed interest in budget restraint, generally demanded by the donor countries of the North. There are numerous groups of member states that are less active in the reform discussion or only participate in specific reform issues, including the Arab League, the Organization of the Islamic Conference (OIC), the Caribbean Community (CARICOM) and the Eastern European Group (EEG). C. PROCESS OF REFORM Reform initiatives are often launched in response to extraordinary circumstances such as fundamental disagreement with a UN decision or perceived institutional shortcomings. They might even be a response to shifts of a catalytic nature, such as the end of the Cold War or the process of globalization, which offer new opportunities or pose new challenges. Reform initiatives are launched mainly by the member countries, rather than the secretariat. If presented by the secretariat, however, such reform proposals have often been subject to detailed prior consultations with interested members. Moreover, the secretariat is closely involved in guiding reform discussion and implementing reform decisions. Often, the membership asks a working group of experts or

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member states to prepare reform proposals that are subsequently negotiated in the Organization’s governing body. Working groups and governing bodies often receive comments from the secretariat on the recommendations developed. Institutional reform proposals are referred for consideration to the Administrative and Budgetary Committee of the General Assembly, also known as the Fifth Committee. Prior to consideration by the Fifth Committee, in which all member states are represented, such proposals are reviewed by the Advisory Committee on Administrative and Budgetary Questions (ACABQ), composed of 16 experts. The Fifth Committee pays particular attention to the administrative and budgetary implications of reform proposals. The conclusions of the Fifth Committee are subsequently presented to the Plenary of the General Assembly for approval. In general, the secretariat is requested to report to the governing bodies on the implementation of approved reforms on a regular basis. Diplomatic negotiations, including those applied to institutional reform, proceed cautiously during a rather lengthy process and aim to reach consensus. The price to pay for consensus is often adjustment of the proposals to the lowest common denominator. Even when approved, reforms are often watered down when confronted with the barrier of implementation. This is a consequence, in particular, of the fragmentation of the UN into a multitude of semi-independent programmes and funds. In addition, there are a host of entities outside the UN which contribute analytical diagnosis and proposals to the UN reform process. These include individual experts, non-governmental organizations and government institutions. There are also institutions that monitor the implementation of UN reforms. The United States Government Accountability Office regularly issues updates to the United States Congress on progress achieved.

CHAPTER TWO

THE HISTORY OF UN REFORM EFFORTS, 1950 TO 2006 A. COLD WAR, NORTH-SOUTH CONFLICT AND THE NEW UNITY, 1950 TO19961 In the first years after the founding of the UN, the secretariat was decentralized from New York to regional centres in Geneva, Bangkok, Addis Ababa and Santiago de Chile. In addition, a number of activities became semi-independent of the UN secretariat, such as UNICEF, which was set up in 1946. The UN’s first experience with peacekeeping came in 1949 in the Middle East; one year later, peacekeepers intervened in the Kashmir conflict between India and Pakistan. East-West antagonism during the 1950s prompted the Soviet Union to demand organizational reforms with a political overtone. At that time, the United States and its Western allies constituted an overwhelming majority within the UN. The socialist states charged that the independence of the secretariat should be ensured by replacing the post of Secretary-General with a troika of one representative each from the socialist states, the Western military alliance and the non-aligned states. They further argued that peacekeeping operations were staffed one-sidedly with persons from NATO countries only. Moreover, candidates from socialist countries were rejected for technical co-operation projects with developing countries to preserve the influence of the Western industrialized nations. The situation escalated when the Soviet Union and its allies refused to share in the cost of peacekeeping operations. Demands to curtail the independence of the Secretary-General were finally rejected in the early 1960s, and agreement was reached by providing a greater share of secretariat posts for persons from socialist countries, while new arrangements were introduced to fund the cost of peacekeeping operations. Decolonization created rapid growth in UN membership, and by 1965 it stood at 118, twice as many as at the Organization’s founding. With states from Africa and Asia joining the UN, development issues became increasingly important, resulting in the expansion of the technical co-operation programmes. This led to the establishment of new bodies, particularly the UNDP in 1965, which was to provide the framework for technical co-operation with developing countries. Mandated by the Governing Body of the UNDP, Sir Robert Jackson proposed to build up the UN system’s management capacity in order to facilitate the delivery of technical co-operation.2 The UNDP was given a co-ordinating role, with all funding for development projects to be channelled through it to the specialized agencies. The lack of global planning and priority setting was to be addressed by developing ECOSOC into a central forum for economic questions. The specialized agencies, however, rejected the curtailment of their independence and member states showed very little interest in centralization. 1 Joachim Müller, Reforming the United Nations: New Initiatives and Past Efforts, Kluwer Law International, The Hague, The Netherlands, Volumes I to III, 1997. 2 A Study of the Capacity of the United Nations Development System, UN document DP/5, 1969.

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Some headway was made in improving the work of the UNDP itself by the introduction of country programme planning and the setting up of UNDP offices in developing countries. Towards the mid-1970s, the UN increasingly became the forum for global negotiations on issues involving development. Whereas technical co-operation remained of highest importance for developing countries, development was to be achieved by addressing new issues such as trade, energy, a common fund for raw materials, industrialization, the transfer of technology, a code of conduct for transnational corporations, the Law of the Sea Convention and the establishment of a New International Economic Order. Negotiations on these issues between developing states, organized as the Group of 77 (G77), and the industrialized countries took place within the United Nations Conference on Trade and Development (UNCTAD). At the insistence of the developing countries, the General Assembly established a group of 25 experts to adapt the UN system’s governance and organizational structure so it could address the economic and social problems of developing countries.3 Under a compromise reached in 1977, the role of the General Assembly was strengthened as proposed by the G77, however without addressing the key demand to vest in the Assembly control over the World Bank, International Monetary Fund (IMF) and General Agreement on Tariffs and Trade (GATT). The post of DirectorGeneral for Development and International Economic Co-operation was created, albeit without the powers and means that had been wished for by developing countries. In ECOSOC and UNCTAD, things remained the same. The G77 blocked any reduction in the number of ECOSOC committees demanded by industrialized countries, while the latter prevented any upgrading of UNCTAD. The Soviet Union supported the call for a New International Economic Order, whereas the United States argued for a reform in management, planning and co-ordination. Thereafter, political confrontation became all-pervasive. Disappointed third-world countries deplored the ‘ignorance of the minority’, while the industrialized countries deplored the ‘tyranny of the majority’. From the beginning of the 1980s, the Reagan Administration and the United States Congress levelled accusations of politicization and mismanagement at the Organization. Specifically, the United States called for a change in UN budget practices. The UN budget is approved by a two-thirds majority of all member states, with all votes having equal weight. The countries making the largest financial contributions, including the United States, were often outvoted on budget questions. The United States reacted by withholding payments and demanded voting power in the approval of the budget proportionate to its contribution. The financial withholding resulted in a budget crisis. The General Assembly responded by mandating a group of 18 experts to review the UN’s administrative and financial efficiency.4 Recommendations were approved by the General Assembly in 1986, including a new two-tier budget process. The concept of a budget outline was introduced, drafting priorities and appropriations one year prior to approving the de3

A New United Nations Structure for Global Economic Cooperation, UN document E/AC.62/9, 28 May 1975. 4 Efficiency of the Administrative and Financial Functioning of the United Nations, UN document A/41/49, August 1986.

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tailed budget so member states could be involved with the budget process at an earlier stage. In addition, the new budget outline was to be approved not by majority vote but by consensus, giving each member a veto, including the major contributors. Although the introduction of the new consensus-based budget process revealed similar interests in East and West, it was perceived by the developing countries as a threat to the principles of sovereign equality. Other decisions included reducing the number of staff by 15 per cent and merging and restructuring organizational entities in the political, economic and information services area. A number of recommendations were not implemented, such as the proposed reduction in staff benefits and entitlements or the simplification of the ECOSOC committee structure. The reforms gave way to a greater convergence of views among member states during the second half of the 1980s and paved the way for major changes to come. The end of the Cold War resulted in a rediscovery and renaissance of the UN. The perceived new opportunities were addressed by a host of new reform initiatives, including proposals by heads of government, groups of ambassadors, non-governmental organizations and individual experts. In 1992, all these studies were submitted to incoming Secretary-General Boutros Boutros-Ghali of Egypt, who took office at a time when the Security Council was displaying unaccustomed unity. The Secretary-General was called upon to work out ways of reforming and reinforcing the secretariat structure in this area. He responded by presenting the Agenda for Peace,5 which contained suggestions for reform in the area of preventive diplomacy, peacemaking, peacekeeping and peacebuilding. Many of the proposals broke new ground, particularly the idea of preventive deployments, establishment of demilitarized zones, dispensing with the principle of consensus and allowing interventions without the agreement of all the parties and even in situations of internal crisis. Originally viewed as going too far, the Agenda for Peace gave direction and allowed new activities such as the deployment of UN troops in Somalia. Boutros Boutros-Ghali forcefully reorganized the secretariat in 1993. A series of independent units in the economic and social domains were consolidated into three major departments and a number of senior posts were abolished. The funds thus released were allocated to the strengthening of the security area. The restructuring also involved cancelling the post of Director-General for Development and Economic Cooperation, whose creation had been a central concern of the G77 in the 1970s. In December 1993, member states agreed to reduce the number of governing bodies for funds and programmes. As demanded by the group of developed countries, the UNDP and UNICEF governing councils were replaced by smaller executive councils. Following on a key concern of the United States, the Secretary-General agreed to establish the Office of Internal Oversight Services to be responsible for audit and investigation. Finally, the Secretary-General gave a more comprehensive mandate, which included political briefs, to UN representatives in member states. As quasi-UN ambassadors, these representatives were to underpin the authority of the Secretary-General. The developing countries strongly criticized this initiative as interference in their national sovereignty. Moreover, they were disappointed over the restructuring of the secre5 An Agenda for Peace, Report of the Secretary-General, UN document A/47/277 – S/24111, 17 June 1992.

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tariat, which they perceived as a contraction and weakening of the economic and social areas in favour of the security priorities of industrial countries. In fact, there was a widespread feeling that the issue of development had been marginalized. By the 50th anniversary of the UN in 1995, the environment had changed with astonishing speed. On 3 October 1993, 18 American soldiers serving in the UN operation in Somalia were killed. The tragedy was a watershed leading to a major change in the United States’ policy towards the UN. In contrast to the Bush Administration, which supported an assertive UN, the Clinton Administration increasingly retreated from multilateral solutions, did not engage in new peacekeeping operations, and insisted on a reduction in its contributions to the UN budget. As in the 1980s, the demands for reform were coupled with the renewed withholding of funds. In response, Boutros Boutros-Ghali introduced major budget reductions, cutting about 10 per cent of the staff, and launched negotiations for an Agenda for Development as a counterpart to the Agenda for Peace. However, further reform initiatives now had to await the new Secretary-General. B. THE QUIET REVOLUTION, 1997 TO 20026 The appointment of Kofi Annan as Secretary-General in 1997 was a chance for a new start. Jesse Helms, Chairman of the United States Senate Committee on Foreign Relations, presented demands for the cessation of perceived UN encroachment on national sovereignty, major budget reductions, a change in the budget process and an overhaul of peacekeeping. The Helms-Biden Reform Act of 1999 called for zero-growth budgets and reductions in the United States’ assessed contribution. Payment of the United States’ arrears was made contingent on benchmarks related to UN financial, administrative and programme reforms. Soon after taking office, Kofi Annan introduced established a cabinet-style body to assist him and grouped 30 UN departments, funds and programmes under four sectoral areas: peace and security, economic and social affairs, humanitarian affairs and development. An Executive Committee was established to co-ordinate the work of each. The Committees were later linked directly to the Secretary-General’s Office by the establishment of a Senior Management Group. After six months in office, Kofi Annan presented his report ‘Renewing the United Nations: A Programme for Reform’.7 Reorganization, consolidation of efforts at the country level and reaching out to civil society and the private sector were at the centre of the reform effort. The Assembly approved the proposal to establish a position of Deputy Secretary-General, the reduction in administrative costs from 38 to 25 per cent, the creation of a development account funded through savings and the introduction of a performance-based management culture. In order to address more fundamental problems, the Assembly agreed to hold a Millennium Summit in 2000. Reorganization efforts were implemented in 1997 and 1998 with the merger of three departments 6

Joachim Müller, Reforming the United Nations: The Quiet Revolution, Kluwer Law Internatinoal, The Hague, The Netherlands, Volume IV, 2001. 7 Renewing the United Nations: A Programme for Reform, Report of the Secretary-General, UN document A/51/950, 14 July 1997.

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into one Department of Economic Social Affairs as well as the consolidation of Vienna-based activities into the UN Office on Drugs and Crime. The Department of Public Information was reoriented. The Department for Disarmament Affairs and the Strategic Planning Unit within the Office of the Secretary-General were established. In September 1999, the Geneva-based human rights programmes were merged into a single Office of the High Commissioner for Human Rights. The consolidation of country teams for the various UN funds and programmes included the establishment of UN Houses, which included shared common office space and utilized common service providers. Other efforts focused on strengthening the role of the UN Resident Co-ordinators as the leaders of UN country teams. In order to bring UN assistance more closely into line with the priorities of the host countries, the concept of a Common Country Assessment was established to clarify national needs, and the United Nations Development Assistance Framework (UNDAF) was created to set out the division of labour among UN entities assisting governments. Reaching out to civil society and the private sector as partners was an innovative initiative. The Secretary-General challenged corporations to meet their responsibilities as global citizens. Under the terms of the Global Compact, participating businesses were to put into place activities to advance the core values of the UN in the areas of human rights, labour standards and the environment. One outcome of the UN’s new openness was the creation in March 1998 of the UN Fund for International Partnership, established by a Ted Turner donation of USD 1 billion, which supports programming in the areas of children’s health, population and women, environment and peace, security and human rights. The Millennium Summit was held in September 2000 and attended by an unprecedented 144 heads of state or government. The summit approved the Millennium Development Goals (MDGs).8 Major commitments were pledged to achieve development and eradicate poverty, including the following precise targets to be achieved by the year 2015: • Halve the proportion of people living in extreme poverty (less than a dollar a day) and hunger; •

Achieve universal primary education;

•

Eliminate gender disparities in primary and secondary education;

•

Reduce by two-thirds the mortality rate among children under five;

•

Reduce by three-quarters the ratio of women who die during childbirth;

• laria; •

Halve and begin to reverse the spread of HIV/AIDS and the incidence of maHalve the proportion of people without access to safe drinking water.

8 United Nations Millennium Declaration, UN General Assembly resolution A/RES/55/2, 8 September 2000.

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The MDGs provided common development priorities that generated an unprecedented level of co-ordinated action within the UN system, the donor community, and the developing countries in the following years. As a major reform effort, the Assembly following the Summit approved a 50-percent increase in staff for the Department of Peacekeeping Operations, and nearly USD 150 million to equip the UN Logistics Base in Brindisi, Italy. The decision was based on the recommendations of the Brahimi Panel,9 which had been established by the Secretary-General at the end of 1999 to propose sweeping changes in view of recent failures in peacekeeping. The panel argued for greater numbers of well-equipped and well-trained troops, more support staff at Headquarters and stronger political and financial support from the member states, particularly members of the Security Council. To provide more flexibility in management and logistics, the secretariat delegated greater authority at the field level. At the insistence of developing countries, gratis personnel attached to the secretariat under the sponsorship mainly of developed countries were phased out. The Assembly also approved a new scale of assessment in December 2000. In accordance with the conditions outlined in the Helms-Biden Act, the United States’ assessment for the regular budget was reduced from 25 to 22 per cent; with the implicit understanding that in exchange the United States’ arrears would be paid. The decision was seen as putting the UN back on a solid financial footing for the years to come. Finally, after a long process of negotiations, the Assembly approved the introduction of results-based budgeting. In September 2002, the Secretary-General’s second major package of reform, entitled ‘Strengthening of the United Nations: An Agenda for Further Change’, was approved by the General Assembly.10 The efforts aimed at expanding the previous reform initiatives introduced in 1997 and included a number of housekeeping initiatives. Development and implementation of the reforms were overseen by the Deputy Secretary-General. Specific changes covered public information, the planning and budgeting system, management and staff and technical co-operation. With regard to public information, the network of UN information centres was rationalized around regional hubs, starting with Western Europe, where nine individual centres were replaced by a regional office in Brussels. The Department of Public Information was restructured by establishing a Division of Strategic Communications to focus on UN messages related to priority themes and an Outreach Division to group together services for delegations, civil society and general public. The planning and budgeting system was considered to be overly complex, involving too many committees, voluminous documentation and hundreds of meetings. The Assembly approved the introduction of a shorter medium-term plan covering two years rather than four, which was combined with the budget outline submitted one

9 United Nations Peace Operations, Panel on United Nations Peace Operations, UN document A/55/305 – S/2000/809, 21 August 2000. 10 Strengthening of the United Nations: An Agenda for Further Change, Report of the SecretaryGeneral, UN document A/57/387, 9 September 2002; Strengthening of the United Nations: An Agenda for Further Change, UN General Assembly resolution A/RES/57/300, 20 December 2002.

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year before the actual budget. The budget document itself was to be less detailed and the Secretary-General was given more flexibility to manage resources. With regard to the management of staff, the office of the Ombudsman had been established at the end of 2001 and an informal mediation process was set up to strengthen the internal staff justice system. A new staff selection system was introduced to shorten the recruitment process, despite concerns that this would make it difficult to achieve equitable distribution of national representation among staff members and improve the gender balance. UN managers also received training in people management, in tandem with the introduction of a new personnel appraisal system. Moreover, staff mobility between different locations and functions was supported. With regard to technical co-operation, important steps had been taken since 1997 to ensure more effective co-ordination among the various UN entities working in a given country. The new initiatives developed by the UN Development Group (UNDG) supported the pooling of resources between UN agencies, funds and programmes working in each country and the establishment of joint programming, common databases and knowledge networks. The Resident Co-ordinator (RC) system was provided with additional support. The reforms launched by the Secretary-General in 1997 and 2002 were acknowledged. In response to a request by the United States Congress, the United States General Accounting Office (GAO) reported in May 200011 that the secretariat had substantially restructured its leadership and operations and partly implemented a performanceoriented human capital management system. In 2002, the UN met the last of the Helms-Biden benchmarks, prompting the United States Congress to release the third and final instalment of more than USD 1 billion in dues to the UN. In a second report,12 the GAO noted that, as of December 2003, 60 per cent of the 88 reform initiatives in the 1997 agenda and 38 per cent of the 66 initiatives in the 2002 agenda were in place. In general, the reforms under the Secretary-General’s authority progressed more quickly than those requiring member states’ approval. C. SECURITY COUNCIL REFORM, 1993 TO 200613 The reform of the Security Council is the most politically charged issue facing the UN. The Council deals with peace and security issue. It can call on members to apply economic sanctions and undertake military action, such as peacekeeping missions. With the end of the Cold War, the Security Council had become more active and influential, often overshadowing the General Assembly. The Council consists of 15 members, including five permanent members (China, France, Russia, the United Kingdom and the United States) and 10 non-permanent members elected by the As11 United Nations: Reform Initiatives Have Strengthened Operations, but Overall Objectives Have Not Yet Been Met, United States General Accounting Office, GAO/NSIAD-00-150, Washington, D.C., May 2000. 12 United Nations: Reforms Progressing, but Comprehensive Assessments Needed to Measure Impact, United States General Accounting Office, GAO-04-339, Washington, D.C., February 2004. 13 Based on Joachim Müller, Reforming the United Nations: The Struggle for Legitimacy and Effectiveness, Martinus Nijhoff Publishers, Leiden, The Netherlands, Volume V, 2006, Chapters 1.13 and 2.3.

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sembly for a two-year term. The Council had already been expanded in 1964 by adding four additional non-permanent members, when UN membership had grown to more than 100 from initial 51. During the early 1990s, membership stood at 185. Japan and Germany were largely excluded from this centre of power and insisted that they were entitled to permanent seats as the second and third largest dues-payers. Japan and Germany became more impatient with their restricted roles as leading donor countries without corresponding membership in the Security Council. The United States paid 25 per cent of the regular budget (later reduced to 22 per cent); Japan was a close second and Germany third. Japan’s assessment was greater than the combined assessments of the other four permanent members. In December 1993, the General Assembly established the Open-ended Working Group14 to discuss issues of Council reform including size and composition, voting arrangements such as the veto, and improved working methods and procedures.15 Any change in the size and composition of the Security Council required an amendment to the Charter. According to Article 108 of the Charter, such amendments require approval by two-thirds of the members of the General Assembly, including all the permanent members of the Council. During the discussions from 1993 to 1995, participants were optimistic that agreement could be reached. The United States, the United Kingdom, France and Russia, as permanent members of the Security Council, supported an increase in the Security Council from 15 to 21 seats to safeguard decision-making efficiency. This would allow for new permanent membership for Germany and Japan and three non-permanent seats for the rest of the world community – the so-called ‘quick-fix’ solution. On the critical matter of veto power for the new permanent members, the existing permanent members were not ready to take a position. The Non-Aligned Movement came out against a solution limited to Germany and Japan and demanded that the Eurocentric bias of the permanent membership be addressed by expanding membership to 26 and including new permanent seats for developing countries. The main contenders were India, Brazil and South Africa, in addition to Japan and Germany. The politics of the issue became more complicated. Due to regional rivalries, Pakistan opposed India, and Mexico and Argentina opposed Brazil. China and South Korea had doubts about Japan. Foreign Minister Lamberto Dini of Italy came out strongly against the aspirations of Germany and envisaged a permanent seat for the European Union as a natural evolution of its common foreign and security policy. Britain, France and Russia supported permanent membership for Germany, Brazil, India and Japan. The United States supported Japan, but refrained from supporting Germany. Countries that themselves would not profit from an expansion of permanent seats but would be faced with an implicit relegation of their own status started to oppose any expansion of permanent membership. Countries such as Italy, Canada, New Zealand and Spain argued that an increase in the number of permanent members would 14

Question of Equitable Representation on and Increase in the Membership of the Security Open-ended Working Group on the Council and Related Matters, UN General Assembly resolution 48/26, 3 December 1993. 15 Bardo Fassbender, ‘On the Boulevard of Broken Dreams: The Project of a Reform of the UN Security Council After the 2005 World Summit’, International Organizations Law Review, Vol. 2, No. 2, 2005, pp. 391-402.

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aggravate an elitist, antidemocratic and anachronistic system. Italy proposed the introduction of a new class of rotating semi-permanent members for which Italy itself, among others, could qualify. Other countries simply proposed to enlarge the Council by increasing non-permanent members only. This was rejected by those that hoped for permanent membership, in particular Germany and Japan. With regard to the voting arrangement, all permanent members, with the exception of China, defended the veto power of the current permanent members. It was argued that this arrangement ensured that the veto excluded the possibility of disagreement among the permanent members when the Council acted. The hopeful candidates argued for veto power for new permanent members, whereas those opposing an extension of permanent membership argued against it. The Non-Aligned Movement viewed the veto arrangement as an anachronism and favoured its eventual elimination. Proposals included limiting the scope of the veto to a smaller number of issues, such as the approval of enforcement measures or the use of military force. This would eliminate the veto right for issues such as the admission of new members or the election of the Secretary-General. The United States strongly opposed modifying the veto arrangement, arguing that veto power was not subject to negotiation. Some agreement was reached on increasing the transparency of the Council’s operations. In December 1994, the Council decided to meet more often in open session. Other measures included the introduction of consultations between members of the Council, troop-contributing countries and the secretariat on peacekeeping operations, including mandate renewals; regular briefings by the President of the Council for nonmembers; the publication of provisional agendas of Council meetings; and the monthly circulation of the Council’s tentative forecast of its programme of work. Draft Council resolutions were made available to member states in their provisional form at the same time as Council members received them. Finally, the Arias formula of having Council members meet informally with non-members under the chairmanship of someone other than the President at a location different from the Council chamber was approved. This formula allowed the Council to hear from anyone it wanted to, without setting a precedent. A number of other issues were covered under the umbrella of reform of the Security Council. The easiest proposal to implement was the deletion of Articles 53 and 107, which referred to Germany, Japan and Italy as states which during the Second World War had been enemies of signatories to the Charter. The enemy clause was uniformly viewed as anachronistic. There was a whole package of other issues for further consideration. They included increased transparency of the sanctions committees and the development of a mechanism to compensate third parties affected by UN sanctions. This also included the elimination of Article 23 (2) of the Charter, which prohibited the immediate re-election of a non-permanent member whose term had expired. While this would favour some middle-sized countries, it would delay the election of smaller countries to the Council. Finally, proposals were considered to enhance the Council’s information-gathering and analysis capabilities, particularly for the benefit of member states serving on the Council that did not possess adequate facilities themselves. Initially, it had been anticipated that the momentum associated with the 50th anniversary of the UN in 1995 would result in an agreement on the reform of the Security Council. Disagreement persisted on virtually all of the main issues including the com-

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position and size of the Security Council and the extension of the veto to possible new permanent members. In order to move the process forward, in early 1997 Razali Ismail, the President of the General Assembly who also served as Chairman of the Open-ended Working Group,16 submitted a draft framework resolution, known as the Razali plan, for discussion and eventual approval by the Assembly in September 1997. It was proposed that the membership would increase from 15 to 24 by adding five permanent (one each from the developing states of Africa, Asia and Latin America and the Caribbean and two from the industrialized states, generally recognized as being Germany and Japan), and four non-permanent members (one each from Africa, Asia, Eastern Europe, and Latin America and the Caribbean). The total of 24 compares with the 26 supported by the Non-Aligned countries and the 21 the United States had set as a maximum. The new permanent members would not have veto rights. Although the original five permanent members would retain their veto, they would be urged to limit the exercise of their veto power to actions taken under Chapter VII of the Charter, which deals with the Council’s enforcement powers. Finally, ten years after the amendments entered into force, a review conference would be convened. The Razali plan also included a major change in procedure for the adoption of the proposed reform. Initially, the intention had been to obtain consensus support among all member states for a reform of the Security Council. Recognizing that this was practically impossible to achieve, the plan proposed to enact the reform in three separate stages. Initially, a framework resolution was to be approved by a majority of twothirds present and voting. This was to be followed by the selection of new permanent members by a two-thirds majority of all members. Finally, the required amendment of the Charter was to be approved by a two-thirds majority of all member states and the current permanent members of the Council in accordance with Article 108 of the Charter. The procedural approach was important. Germany and Japan were hopeful that they could muster a two-thirds majority of present and voting members for a framework resolution. This could subsequently build momentum based on which others would join the approval of the Charter amendment during the final stage. A number of countries vehemently opposed the Razali plan, notably Italy, Pakistan and Mexico, which were against any expansion of the permanent category. In particular, Italy opposed the proposed procedural approach, which was seen as conveying the misleading impression that the enlargement was inevitable. The Razali plan received a serious blow as early as April 1997, when the Foreign Ministers of the Non-Aligned Movement issued a declaration on Security Council reform that emphasized the demand to give new permanent members the same veto power as current ones. Moreover, the Organization of African Unity introduced demands for two permanent regional rotating seats with veto power. Hopes that there could be any agreement on Security Council reform had faded by the end of 1997. In May 1998, India exploded nuclear devices, followed shortly after-

16 Report of the Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Related Matters, Official Records of the General Assembly, Fifty-First Session, Supplement No. 47, UN document A/51/47, 1997.

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wards by Pakistan. In response, the United States stated its opposition to India’s candidature for permanent Security Council membership. Meanwhile, Germany and Japan were prepared to push ahead with a resolution calling for an expansion of the Security Council. As was the case in late 1997, the crucial discussion focused on what majorities would be required at what stages of the decision-making process to effect change. When the issue of majority vote came up for decision in November 1998, the General Assembly determined not to adopt any resolution without the affirmative vote of at least two-thirds of the 185 members of the General Assembly. The Assembly decision represented a severe setback for Germany and Japan after five years of negotiations. The move to secure a permanent seat was judged to have failed. Given the likely difficulty of gathering a two-thirds majority for expansion, it was hard to foresee any increase in Council membership for years to come. Italy welcomed the decision of the Assembly, arguing that this had eliminated once and for all the threat of a legal anomaly on the problem of the majority needed for decisions on Security Council reform. Discussion continued in the Open-ended Working Group, but as the United States noted during the General Assembly debate in November 2000, there was not yet even an emerging consensus on how to proceed. Germany, Japan, Brazil and India, known as the Group of 4 (G4), joined forces and lobbied together for permanent seats on the Council, with a seat reserved for an African country as well. A number of mid-size countries, led by Italy and Pakistan and including Canada, Argentina, South Korea and Spain, formed an alliance with the slogan ‘Uniting for Consensus’, also known as the ‘Coffee Club’, which rejected any increase in permanent membership and introduced a proposal for semi-permanent membership for which they would also qualify. Dramatic developments in the Security Council created renewed interest in reform in 2003. The inability of the Security Council to either endorse or prevent military action in Iraq had left the UN profoundly shaken. The World Summit in November 2005 was to agree on a new vision of collective security and adapt outdated structures. The High-level Panel on Threats, Challenges and Change, made up of 16 eminent persons, was to prepare proposals, including on the reform of the Security Council. In December 2004, the Panel presented three main recommendations. First, it was suggested that there be selection criteria for membership such as financial, military and diplomatic considerations, and geographic balance. Second, the Council should be expanded from 15 to 24 members in accordance with two possible models: Model A involved new permanent seats and Model B provided for a new category of four-year renewableterm seats. Third, the Panel suggested a full review of the new arrangement in 2020. A majority of panel members preferred an expansion according to the Model B. While the Panel did not see a practical way of changing the existing members’ veto power, it considered the veto to be anachronistic and did not propose an extension beyond the existing five countries. The Secretary-General endorsed the Panel’s recommendations without favouring a specific proposal. The United States warned the G4 that it would not support their bids to join the Security Council unless they agreed not to ask for veto power. In order to make their proposal acceptable to the African members, the G4 expanded it by increasing membership by 10 from 15 to 25, with four permanent seats for themselves, two new permanent seats for African countries and four non-

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permanent seats with two-year terms (one each for Africa, Asia, Eastern Europe and Latin America). New permanent seats would not have initially the veto right, which could be reconsidered as part of a mandatory review in 15 years’ time. The G4 proposal did not, however, gain the support of the African states. South Africa and Nigeria were the top candidates for one permanent African seat and Egypt was pushing for the other, insisting that Arab nations must be permanently represented on the Council. Senegal and Kenya also expressed an interest in permanent membership. In March 2005, the Executive Council of the African Union adopted a common position on the Security Council reform, known as the ‘Ezulwini Consensus’. Most important was the demand that all new permanent members should have the same prerogatives and privileges as the current permanent members, including the right to veto. Moreover, one additional non-permanent seat was demanded for Africa as compared to the G4 proposal. In the meantime, political activity was reaching a new level of intensity. In April 2005, thousands of Chinese protestors had broken windows at the Japanese Embassy in Beijing and rampaged through Shanghai. The immediate cause of the protest was the revision of a junior-high-school textbook in Japan that was seen as glossing over Japan’s World War II record. Japan’s quest for a permanent seat on the Security Council was one of the factors fuelling the anti-Japan protests. Negotiations reached a deadlock a few months before the 2005 Summit. The G4 forced member states take a stance by tabling a draft resolution based on its recent proposal. This draft resolution was not supported by certain hoped-for cosponsors, the most important of which were Belgium, Denmark, France, Greece, Poland and Portugal. The African group put forward its own draft resolution according to the Ezulwini Consensus. The Uniting for Consensus group sponsored a third draft resolution to increase the Security Council from 15 to 24, including nine additional non-permanent seats. None of the three draft resolutions was put to a vote during the World Summit. Security Council reform was abandoned after nine months of intense negotiations. The results in 2005 actually fell short of the agreement already reached in 1995 on the occasion of the 50th Anniversary of the UN. At that time, the General Assembly decided that the Security Council should be expanded to further strengthen its capacity and effectiveness. Following the Summit, Germany, India and Brazil resubmitted to the General Assembly a slightly updated draft of their initial proposal to expand the Council from 15 to 26 seats. Japan did not join the new bid, which it saw as compromising its aspirations, after it was made clear that the proposal would not be supported by the United States. Indeed, in late November 2005, the United States Ambassador told the Assembly that it would oppose any effort to expand the Council beyond 20 members. The US criteria for membership appeared to boost Japan’s candidacy, included size of economy and population, military capacity, contributions to peacekeeping operations, commitment to democracy and human rights, financial contributions to the UN, nonproliferation and counter-terrorism records, and equitable geographic balance. In January 2006, Japan developed its own proposal for Security Council reform with an increase in membership from 15 to 21. Of the six new seats, two each would go to Asia and Africa and one each to Latin America and Europe. The status of new permanent members would be given to countries that won the support of at least two-

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thirds of the UN membership. The new permanent member would have no veto right. Other elected candidates would become semi-permanent members with renewable long-term membership. The current non-permanent membership was limited to two years and was non-renewable. By the end of March 2006, however, Japan gave up its proposal. China was adamantly opposed and the United States indicated that it could not support Japan. Consultations on Security Council reform had been ongoing for the past 15 years, but without coming closer to an agreement. Expansion and veto privileges were the most controversial issues. Japan had previously made it clear that it would try to reduce its contributions to the UN regular budget if it failed to gain a permanent seat. Japan’s assessment for the period 2007–2009 was subsequently fixed at 16.6 per cent as compared to the previous 19.5 per cent. D. STRUGGLE FOR LEGITIMACY AND EFFECTIVENESS, 2003 TO 2006 On 11 September 2001, a series of co-ordinated suicide attacks were carried out upon the United States. September 11 had profound economic, social, political and military impacts on the United States and many other parts of the world. It had also a major effect on the work of the UN. The United States declared war on terrorism and the UN expressed broad international support in combating terrorism, including military action against the Taliban and Al-Qaida in Afghanistan. The US considered the traditional strategies of deterrence and containment no longer sufficient. According to the Bush Doctrine, the understanding of the right of self-defence was extended to include pre-emptive actions against potential aggressors, with the goal of striking first to eliminate threats. In early 2002, the Bush administration announced that it considered Iraq to be part of an ‘axis of evil’ of regimes that sponsored terror. Prior to September 11 and in the aftermath of the first Gulf war in 1991 following the invasion of Kuwait by Iraq, the Security Council had imposed a disarmament and sanctions regime on Iraq to destroy any weapons of mass destruction. In the decade following the Gulf War, the UN displayed its frustration that Iraq was failing to disarm. In November 2002, the Security Council decided that Iraq was in material breach of prior resolutions calling for the elimination of Iraqi weapons of mass destruction and recalled that the Council had repeatedly warned of ‘serious consequences’. Diplomatic pressure to make Iraq comply with Security Council resolutions through military action quickly created a diplomatic crisis in the UN, where the United Kingdom and Spain were in agreement with the United States, while others dissented, notably France, Russia, Germany and China. There was a fierce debate on the need for a Security Council resolution authorizing military action. As a result of the split in membership, no such resolution was approved. The United States announced that ‘diplomacy has failed’ and the Iraq invasion started on 20 March 2003; it involved a ‘coalition of the willing’, led by the United States and initially composed of 49 countries, including the United Kingdom, Australia, Poland, Italy and Spain. The inability of the Security Council to either endorse or prevent military action in Iraq left the UN profoundly shaken; many observers questioned the legitimacy and effectiveness of the Organization. In March 2003, the heads of state of Russia and

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China called for a reform of the UN to uphold its role in world affairs. In late 2003, the Secretary-General noted that the Organization had reached a ‘fork in the road’ and announced the launch of a fundamental review of the UN in order to set out a new vision of collective security. Proposals were to be considered by the World Summit in September 2005 on the occasion of the UN’s 60th anniversary. The Summit had originally been conceived of as a follow-up to the 2000 Millennium Summit and dedicated to the review of the Millennium Development Goals (MDGs). The meeting now acquired a more comprehensive purpose and married development with security concerns. Security concerns are of particular interest to developed countries, such as the fight against terrorism, preventing the proliferation of weapons of mass destruction and efforts to strengthen peacekeeping. In addition, developed countries also pay special attention to human rights and the prevention of genocide – objectives that are rooted in the tradition of liberal democracies. The issue of genocide, in particular, had recently given rise to the concept of humanitarian intervention and, more specifically, the notion of a ‘responsibility to protect’. For developing countries, security concerns are of course also important. But they look to the UN especially as an instrument to promote development. This concern is reflected in the UN development agenda, a compact arising from internationally agreed-upon development goals. The most prominent expression of this compact were the MDGs for progress to be achieved by 2015 towards eradicating extreme poverty, hunger and disease. 1. High-level Panel on Threats, Challenges and Change, Millennium Project, Volcker Committee and the Mitchell/Gingrich Task Force The Secretary-General developed his proposals for submission to the 2005 World Summit by drawing on two main reports: first, the report ‘A More Secure World: Our Shared Responsibility’17 by the High-level Panel on Threats, Challenges and Change issued in December 2004; second, the report ‘Investing in Development’18 by the UN Millennium Project, sponsored by the UNDP, an independent advisory body directed by Professor Jeffrey Sachs, and issued in January 2005. The High-level Panel was established by the Secretary-General in November 2003 to generate a new vision of collective security and develop ideas for improving the effectiveness of the UN. The Panel was chaired by Anand Panyarachun, the former Prime Minister of Thailand, and composed of 16 independent eminent persons.19 The 17

A More Secure World: Our Shared Responsibility, Report of the High-Level Panel on Threats, Challenges and Change, UN document A/59/565, 2 December 2004. 18 Investing in Development: A Practical Plan to Achieve the Millennium Development Goals, UN Millennium Project, New York, 2005. 19 Chairperson: Anand Panyarachun, former Prime Minister of Thailand; Eminent persons: Robert Badinter (France), João Clemente Baena Soares (Brazil), Gro Harlem Brundtland (Norway), Mary Chinery-Hesse (Ghana), Gareth Evans (Australia), David Hannay (United Kingdom of Great Britain and Northern Ireland), Enrique Iglesias (Uruguay), Amre Moussa (Egypt), Satish Nambiar (India), Sadako Ogata (Japan), Yevgeny Primakov (Russian Federation), Qian Qichen (China), Salim Ahmed Salim (United Republic of Tanzania), Nafis Sadik (Pakistan) and Brent Scowcroft (United States of America).

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Panel presented a total of 101 recommendations addressing the areas of security, human rights, development and management. The reception of the Panel’s report in the United States was mixed.20 Support for a definition of terrorism, for recognizing the responsibility to protect and for establishing a new Peacebuilding Commission reporting to the Security Council was welcomed. On the issue of the use of force, the Panel’s efforts to introduce a new mechanism for the sanctioning of pre-emptive wars were appreciated. On major security concerns like nuclear proliferation, the United States supported the Panel’s endorsement of the proliferation security initiative, as well as the proposal for the IAEA to undertake mandatory verification of nuclear facilities in any state that withdraw from the Non-proliferation Treaty. However, the United States opposed the Panel’s call for industrialized countries to drastically increase their development funding by committing themselves to meet the long-established target of 0.7 per cent of GNP, as well as the proposal on the marking and tracing of small arms. On human rights, the Panel’s recommendation to expand the Commission for Human Rights to universal membership was harshly reviewed by the United States and human rights organizations. Many developing countries expressed their concern that the issue of development was approached only from a narrow security angle and that the role that economic development in safeguarding collective security was not adequately addressed. The focus on the Security Council was seen as altering the General Assembly’s role and authority as the principal deliberative body of the UN. Many members were concerned that the emphasis on limiting the proliferation of weapons of mass destruction was promoted at the expense of disarmament. Similarly, a number of countries expressed their disappointment that the Panel had failed to examine in more detail the dangers of the flood of small arms. The report of the UN Millennium Project presented a strategy for combating extreme poverty, hunger and disease and was convincing in its optimism and simplicity. It stated that the MDGs could indeed be reached by 2015, and many successes had already been achieved in the fight against HIV/AIDS and in the education of children. What was needed was a big push, especially in sub-Saharan Africa. Donor countries would need to live up to previous promises, in particular to provide 0.7 per cent of GNP as Official Development Assistance (ODA), cancel debts and initiate development-based trade rounds. Proposals included a crash development programmes in well-governed fast-track nations such as Ghana, Ethiopia, Mozambique and Senegal. Other proposals included quick-win actions such as the provision of mosquito nets for children who live in malaria-infested regions or the elimination of school and uniform fees for poor children. The core recommendation was that the MDGs must be at the centre of national and international poverty reduction strategies. The report quickly won praise from developing countries and the heads of the International Monetary Fund and the World Bank. President Jacques Chirac of France and Prime Minister Tony Blair of the United Kingdom supported the report. In July 2005, the Group of 8 Summit in Gleneagles, Scotland, agreed to double aid to Africa by 2010, an increase of USD 50 billion a year, and to eliminate outstanding debts by 20

Jeffrey Laurent, ‘Fork in the Road’, The World Today, August/September 2005, pp. 4-7.

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the poorest countries. In addition, the Summit pledged additional investment in education and the fight against HIV/AIDS, malaria and tuberculosis. In the crucial months preceding the 2005 World Summit, questions of integrity, ethics and management competence were raised. Indeed, the UN was experiencing a dire year. The Organization faced criticism over allegations of sexual exploitation in peacekeeping missions and corruption in peacekeeping procurement. It was also under investigation for mismanagement and corruption in the UN Oil-for-Food Programme in Iraq. Following the 1991 Gulf War, the Security Council had imposed a disarmament and sanctions regime on Iraq, designed to destroy weapons of mass destruction. Since the sanctions remained in place longer than initially anticipated, the Security Council established the UN Oil-for-Food Programme to respond to the humanitarian needs of Iraqi civilians, the unintended victims of the international sanctions. The Programme was administered by the UN Office of Iraq Programme (OIP), under the oversight of the Security Council Iraq Sanctions Committee. Iraq obtained food, medicine and humanitarian goods under the Programme, funded by the supervised sale of Iraqi oil. At a cost of USD 69 billion, the Oil-for-Food Programme was the largest, most complex and most ambitious humanitarian relief effort in the history of the UN. The Programme succeeded in providing 27 million Iraqis with a minimum of nutrition and health. It suffered, however, from inefficiencies, waste and allegations of corruption which impaired the credibility of the UN and the leadership of the Secretary-General. On the initiative of United States Senator Norm Coleman, the Volcker Committee, an independent inquiry committee named after its head, former United States Federal Reserve Chair Paul Volcker, was established in April 2004. The Committee was charged by the Security Council and the UN Secretary-General with the task of reviewing the management of the UN Oil-for-Food Programme, including accusations against members of the Security Council, the Iraqi government, several other UN agencies, numerous private corporations, UN officials and the Secretary-General’s son, Kojo Annan. Before the World Summit, the Volcker Committee stated that the Iraqi regime had benefited from systematic sanction violations and kickback schemes and found serious instances of illicit, unethical and corrupt behaviour within the UN. In particular, the report concluded that the Secretary-General, the Security Council and the UN secretariat were not fit to meet the challenges posed by the Programme. The Volcker Committee considered that the UN required stronger executive leadership, management controls and effective auditing. It recommended creating the position of UN Chief Operating Officer to handle management responsibilities for the Secretary-General and setting up an Independent Auditing Board. In addition to the Volcker Committee, the United States Congress launched numerous investigations into the UN. In January 2004, Congress launched the bipartisan Task Force on the UN, chaired by the former Senate majority leader George Mitchell and former House Speaker Newt Gingrich. The Task Force21 found that the UN was in urgent need of sweeping reforms. It considered the UN to be bogged down by the 21 American Interests and UN Reform, Report of the Task Force on the United Nations, United States Institute of Peace, Washington D.C., June 2005.

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deadwood of useless programmes. The report noted that the UN Oil-for-Food Programme was flawed by a combination of incompetence, gross mismanagement and alleged corruption and criminality. The UN was found to lack basic management systems. The overly numerous staff members did not possess the skills and motivation to perform their duties. The problems were seen as stemming from politicization and micro-management by the General Assembly and Security Council as much as from the failures in the Secretary-General’s leadership. Reform initiatives were seen to be blocked by the large number of small member states, who collectively paid less than one per cent of UN contributions but commanded a two-thirds majority in the General Assembly. The Task Force recommended the abolition of the Human Rights Commission, agreement by the General Assembly on a comprehensive definition of terrorism and the development of a rapid reaction capability to address threats of genocide. With regard to oversight and management, the Task Force presented similar proposals to the Volcker Committee. They included the creation of an independent audit committee, additional resources for the Office for Internal Oversight Services (OIOS), protection for whistle-blowers, access to oversight reports by member states, establishment of an Office of Personnel Ethics, zero tolerance of sexual exploitation and abuse, and the creation of the post of chief operating officer. Previous United States proposals were repeated, such as the introduction of weighted voting on budgetary matters to give a greater say to larger contributors, the introduction of sunset provisions for programmes and the increased funding of programmes from voluntary contributions. The UN responded by implementing management and oversight concerns in parallel to the ongoing investigations. As early as January 2004, the United States was able to get a decision approved that mandated OIOS to release any of its audit reports to member states upon request. The Secretary-General’s efforts included the development of an anti-fraud and corruption policy based on a model recently developed by the World Bank. A policy to protect whistle-blowers, financial disclosure policy for senior staff and a supplier code of conduct were implemented. Three new committees were to support management. First, an Oversight Committee was to monitor management actions in response to recommendations by OIOS, the Board of Audit and the Joint Inspection Unit. Second, a Committee on Management was to serve as catalyst for the implementation of reform decisions. Third, a Management Performance Board was to monitor the performance of individual offices and managers. In response to allegations of sexual misconduct, efforts included the introduction of a standard of conduct for peacekeeping personnel and the establishment of complaint mechanisms. The United States considered the ongoing reform efforts to be too little, too late; its relationship with the UN was at a low point. In mid-2005, the United States House of Representatives passed legislation calling for the withholding of its regular UN dues unless the Organization adopted measurable reforms. Support for the UN came from 70 Nobel Laureates, who announced in February 2005 their support for the SecretaryGeneral, citing his record of reform. 2. In Larger Freedom and 2005 World Summit The 2005 World Summit took place on 14–16 September 2005 at UN Headquarters in New York, attended by 151 Heads of State and Government, the largest-ever assem-

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blage of world leaders. The Secretary-General called the Summit ‘a once-in-ageneration opportunity’ and proposed that it agree upon a global ‘grand bargain’ between rich and poor nations, promising more development aid in return for tougher action on human rights, terrorism, nuclear non-proliferation and UN management reform. The Summit concluded with the adoption of the 178-paragraph, 40-page Outcome Document. The Outcome Document was the result of negotiations among governments based on the report of the Secretary-General ‘In Larger Freedom: Towards Development, Security and Human Rights for All’23 issued in March 2005. The report largely reflected the recommendations previously advanced by the High-level Panel, the UN Millennium Project and the Mitchell/Gingrich United States Task Force on the UN. The reform proposals also included some initial responses to the ongoing Volcker investigation of the UN Oil-for-Food Programme. The report of the Secretary-General excluded a number of controversial recommendations initially proposed by the Panel, such as the creation of a specialized UN agency for the environment. Other proposals were modified to ensure wider acceptance, including the reform of human rights machinery. Instead of introducing universal membership, the Secretary-General proposed to replace the Human Rights Commission with a smaller Human Rights Council. The report of the Secretary-General had been the subject of quiet discussions between the United States administration and the UN for months. As the Summit date came closer, however, the United States’ criticism increased during negotiations over the Outcome Document. The call for a formal commitment to a bigger increase in development aid was rejected. At one stage, the United States called for the systematic deletion of every reference to the MDGs and instead emphasized the Monterrey Consensus, including good governance, rule of law, respect for human rights, and a liberal, market-based economic structure. Moreover, it proposed to delete any mention of the International Criminal Court, which the US did not recognize, and any mention of the Kyoto Protocol, which the US administration did not support. Finally, the United States administration considered that the Secretary-General’s proposals on administration did not go far enough. Supported by a number of developed countries, the United States put forward new proposals to empower the Office of the Secretary-General with additional management and oversight responsibility similar to those of a corporate chief executive officer. The developing countries not only lined up against the United States with unusual determination, but had their own concerns about the Secretary-General’s report. Egypt, Pakistan, Cuba and Venezuela had misgivings about the focus on human rights and security issues and lack of emphasis on poverty and inequities in the global financial system. Algeria and Pakistan were particularly critical of the new ‘responsibility to protect’ concept, which was seen as legitimizing outside military intervention. Russia and China also backed a more cautious approach in introducing the concept of intervening inside national borders to prevent human rights violations. Russia objected to giving authority to intervene in cases of genocide. Other criticism came in particular 23 In Larger Freedom: Towards Development, Security and Human Rights for All, Report of the Secretary-General, UN document A/59/2005, 21 March 2005.

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from Muslim nations, which resisted a broad denunciation of terrorism against civilians, and wanted to include the right to resist foreign occupation. In June 2005, the special ministerial meeting of the Non-Aligned Movement emphasized that the General Assembly should oversee the Peacebuilding Commission and not the Security Council and called for the global elimination of nuclear weapons. Management reform was widely viewed as strengthening the executive power of the Secretary-General at the expense of developing countries’ traditional control through the General Assembly. Finally, the developing countries expressed caution about the proposed replacement of the Human Rights Commission by a Human Rights Council. The Summit finally approved the Outcome Document. Although the outcome was significant, no grand bargain was achieved, as initially intended. Agreement was mainly reached in the areas of Responsibility to Protect, Human Rights Council, Peacebuilding Commission and ECOSOC reform, as described below. 2.1. Responsibility to Protect Possibly the most important, albeit mainly symbolic, outcome was to recognize an international ‘responsibility to protect’ in the event of genocide and other large-scale killing, ethnic cleansing or serious violations of humanitarian law which sovereign governments have proved powerless or unwilling to prevent. Should national authorities fail to protect civilians from those four international crimes and peaceful means prove to be inadequate, the Summit agreed that the Security Council could authorize military intervention, namely ‘collective action, in a timely and decisive manner’ under Chapter VII. Rwanda was cited as a past case in point for intervention, referring to the killing of an estimated 800,000 ethnic Tutsis from April to June 1994. Agreement was reached after considerable debate. The Iraq invasion and its rationalization on human security grounds created an atmosphere of distrust among developing countries. Intervention on the basis of the new norm was seen as clashing with the doctrine of national sovereignty and potentially allowing the international community to get involved in what were regarded as internal affairs. The developing countries’ concerns were finally overcome. 2.2. Human Rights Council New arrangements for the Human Rights Commission possibly constituted the cornerstone of the reform efforts. Developed countries considered the 53-member Commission to be fundamentally discredited and in need of replacement. The Summit could not agree on a new arrangement, since some developing countries suspected that the intention of reform was to use human rights issues as an excuse to intervene in their internal affairs. This was the case in particular for Egypt and Pakistan. The Summit managed, however, to express a ‘resolve to create’ a Human Rights Council and after additional months-long negotiations, the General Assembly finally decided in March 2006 to replace the Commission on Human Rights with a new Human Rights Council. The new Council has 47 members, whereas the previous Commission had 53. (Other options included making the Commission universal, representing all members, or, as preferred by the United States, having a membership of not more than 30.) The Council is a subsidiary body of the General Assembly and therefore accountable to the full membership of the UN, while the former Commission was a subsidiary body of

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ECOSOC. (Another option was to upgrade the new Council to the status of a principal organ of the UN.) The Council members were to be elected individually by an absolute majority of the General Assembly; the previous Commission members were elected by ECOSOC through a majority of those present and voting. (Another option preferred by the United States was selection by a two-thirds majority of the General Assembly.) Finally, the General Assembly has the right to suspend, by a two-thirds majority, Council members that persistently commit gross and systematic violations of human rights. No process for suspension existed for the old Commission. The new Council was established not by consensus, but through a vote of the General Assembly. Support came mainly from the developed countries, which considered the new arrangement a good compromise. Although voting in favour, the developing countries were not enthusiastic. The US, however, voted against, mainly since the requirement for a two-thirds majority for membership election was not approved, which it considered essential to block human rights violators from being elected. The new Council convened for the first time on 19 June 2006. The US did not apply for membership and was therefore not represented in the new Council. 2.3. Peacebuilding Commission One of the main achievements was the decision to establish a Peacebuilding Commission, backed up by support offices and a peacebuilding fund. The idea of creating the Commission had enjoyed significant support among member states before the Summit, including the US. It was suggested that such a body would have a mandate to prevent the collapse of state institutions, including action without or against the will of member states. The Summit ultimately agreed on a less ambitious approach and the final modalities were fixed on 20 December 2005. The Commission was established as an advisory body with a mandate focusing on assisting in the transitions between conflict and post-conflict peacebuilding and recovery only, with no mandate to address prevention issues. Initially, no agreement existed on how to institutionalize the new body. The United States had proposed that the Commission should report to the Security Council. This was perceived by some developing countries as an attempt to ensure control over the new Commission by the rich and powerful countries. India, Iran and Malaysia in particular favoured a link with the General Assembly, where developing countries play a larger role. Uganda suggested ECOSOC, which is responsible for development issues. Finally, agreement was reached that the Commission would report as the first body to all three: the General Assembly, Security Council and ECOSOC. The Commission consists of 31 members, with seven Security Council members, including permanent members, selected by the Council; seven members of ECOSOC elected from regional groups; five top contributors to UN budgets; and five top providers of military personnel and civilian police to UN missions. Although its decisionmaking power is limited, the Commission was to act on the basis of consensus of its members. By the end of 2008, the Commission was engaged in the peacebuilding process in Burundi, Sierra Leone, Guinea-Bissau and the Central African Republic. Requests for assistance from the Commission typically originated from the country itself and consideration will next be given to Liberia, Nepal and Timor-Leste. Issues covered include promotion of good governance, strengthening of the rule of law, secu-

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rity sector reform, socio-economic recovery, and modernization of the public and administration system. 2.4. ECOSOC Reform The 2005 World Summit agreed to strengthen ECOSOC with the introduction of ministerial meetings. An annual ministerial meeting was established to monitor the implementation of the internationally agreed-upon development goals, including the MDGs. Every two years, the ministerial meeting should serve as a high-ranking ‘Forum for Development Co-operation’ was expected to engage in a high-level dialogue on new trends, promote synergy among providers of development assistance, and strengthen the links between the normative and operational activities of the UN. The establishment of the ministerial review expressed the hope that ECOSOC would develop into the central forum for intergovernmental oversight and assessment of the implementation of the UN’s development agenda. It would be a global platform for the main stakeholders in international development co-operation, approximately 150 bilateral donors, multilateral organizations, international financial and trade institutions and regional organizations. The first meeting of the biennial Development Cooperation Forum was launched at the ECOSOC session in July 2007, and held during the 2008 Council session. International economic, monetary and trade policy decisions, however, would continue to be dealt with primarily by the IMF, World Bank and WTO. 2.5. Limited Progress The Summit managed to agree on a number of other issues. It embarked on a mandate review, one of the most contentious parts of the reform initiative, the details of which, however, would need to be agreed on subsequently.24 This was strongly supported by the United States and other developed countries, whereas many developing countries considered the exercise as a pretext for budget cuts and an attempt to eliminate politically inconvenient mandates. The Summit also recognized that combating terrorism must comply with human rights law, reaffirmed democracy as a universal value, and welcomed the establishment of a Democracy Fund. It was emphasized that the Security Council should improve its monitoring of the implementation and effects of sanctions, such as procedures for maintaining sanctions lists and mechanisms to address special economic problems arising from the application of sanctions. Aside from a number of institutional reforms, progress was limited. The failure to agree on a reform of the Security Council has already been outlined. In addition, the Summit failed to agree on issues such as MDGs and sustainable development, nonproliferation and disarmament, terrorism, use of force and management reform, as outlined below. 2.6. MDGs and Sustainable Development The first 18 pages of the Outcome Document dealt with development. Despite its length, the content was limited and non-committal, consisting mainly of a list of previous intentions, such as the Monterrey Consensus and the World Summit on Sustain24

Details of the initiative are outlined in Chapter III, Section B, under 4. Mandate Review.

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able Development in Johannesburg in 2002. The development issues were explicitly framed in security terms and emphasis was placed on good governance, the rule of law, the fight against corruption, domestic stability, and respect for human rights, trade liberalization, gender equality, market-oriented policies and solid democratic institutions. Indeed, the Summit struggled to reaffirm fundamental agreements that had been reached earlier, such as the commitment to achieve the MDGs. This was considered significant, in view of the United States’ previous objections. Nevertheless, many countries and non-governmental organizations were disappointed that the Summit did not reach agreement on a stronger commitment to achieve the 30-year-old target of ODA equivalent to 0.7 per cent of GNP. Such an agreement had been reached by the Group of 8’s Gleneagles Summit of July 2005. In addition, the Summit proclamation on debt cancellation fell short of previous agreements. The decision reached by the World Summit was seen as indicating the United States’ retreat from the MDGs. 2.7. Non-Proliferation and Disarmament The issue of non-proliferation and disarmament was omitted altogether from the Outcome Document owing to the lack of consensus. The United States and other nations wanted to strengthen non-proliferation, but remove references to nuclear disarmament for big powers. This was objected to by the developing countries, which had the opposite priority. More stringent inspection rules under the Treaty on the Non-Proliferation of Nuclear Weapons were rejected due to concern about increased interference in legitimate nuclear energy production. No reference was included on establishing a system of controlled supply of fissile material for civilian use. Finally, the proposal to address the risk of catastrophic terrorism through an international convention on the suppression of acts of nuclear terrorism was not taken up forcefully. 2.8. Terrorism The Summit failed to agree on a definition of terrorism that would open the way to negotiating a Comprehensive Convention on International Terrorism (CCIT) to serve as a binding and enforceable instrument of international criminal law. Efforts to draft such a convention had been on the General Assembly’s agenda since 1996 and broad agreement seems to exist on the contents of such an instrument. Although many states were seeking a strong condemnation of all forms of violence against innocent civilians, some Islamic nations sought a special reference to liberation groups and the right to resist foreign occupation. In the end, the 2005 World Summit agreed to develop a counter-terrorism strategy. Although not the hoped-for CCIT, agreement on such a strategy was expected to provide momentum for agreement on the Convention. 2.9 Use of Force Discussions of the right to self-defence and the pre-emptive or preventive use of force did not result in the approval of new concepts and corresponding Charter amendments. Rather, the Summit referred to the collective security system agreed upon 60 years ago and reaffirmed that the Charter was sufficient to address the full range of threats to international peace and security. Specifically, the power of the Security Council was not amended through a revision of Article 51 of the Charter, nor did the Summit impose any criteria of legitimacy, even highly flexible ones, on the use of military force,

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in particular on permanent members. Criteria had previously been proposed, such as the seriousness of the threat, the purpose of the proposed military action, alternatives to the use of force, proportionality of the military option to the threat, and chances of success. 2.10. Management and Oversight Reform The Summit did not approve specific reform initiatives. The Secretary-General had submitted only a limited number of initiatives and those few were questioned, such as the one-time staff buyout. The United States felt that the progress of the reforms was lagging, despite months of negotiations and meetings, due to the resistance of developing countries and inadequate efforts by the secretariat. Instead of concrete proposals, the Summit requested a host of new studies dealing primarily with issues of oversight. This included an independent external evaluation of the audit and oversight arrangement of the UN system, including its specialized agencies. The Secretary-General was also requested to conduct an internal review of OIOS to determine the appropriate funding level, the scope of its activities, the responsibilities of management and additional measures to enhance the independence of oversight. Other studies covered the creation of an Independent Oversight Advisory Committee (renamed the Independent Audit Advisory Committee) to assist the Secretary-General and the General Assembly in better exercising their governance responsibilities; details on an ethics office and development of a system-wide code of ethics for UN personnel. In addition, the Summit commissioned a study on how to improve coherence across the UN system. Reactions to the outcome of the 2005 World Summit were mixed. Newt Gingrich and George Mitchell stated that they were dismayed with the results of the Summit and that the Outcome document fell significantly short of the recommendations made by their task force. Paul Volcker suggested in a statement to the Senate Foreign Relations Committee on United Nations Reform that threatening to withhold assessed contribution might be the only way to cut through the UN ‘culture of inaction’. Conversely, Jamaica, representing the Group of 77 developing countries, expressed disappointment that the proposed declaration focused more heavily on the creation of new institutional structures and management reform than on a more expansive treatment of economic and trade issues. The United States Ambassador John Bolton appeared to be content with the outcome, in particular since it succeeded in keeping out elements that directly conflicted with key United States policies.25 3. Follow-up on the 2005 World Summit In early 2006, a number of management reform initiatives were finally put in motion. An Ethics Office was established in January 2006 to administer the Organization’s new financial disclosure programme and the new whistle-blower protection policy. Details on the establishment of an independent oversight advisory committee were presented. As well, the Office of the Ombudsman was established. 25 Judy Aita, World Summit Concludes with Declaration of U.N. Goals, U(nited States State Department, Washington D.C., 16 September 2005.

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In March 2006, a few months prior to the end of his term, the Secretary-General submitted recommendations on further management changes to the General Assembly.26 The Secretary-General called for a thorough strategic refit covering the rules, structure, systems, and culture of the secretariat. The specific proposals, however, were less bold, as noted in the review by the Advisory Committee for Administrative and Budgetary Questions (ACABQ). Additional funding of USD 510 million was requested essentially to provide better pay and benefits to staff in the field and to upgrade investments in information and communication technology. Many of the recommended reform initiatives were already in the process of implementation or had been previously rejected, such as a proposed buyout plan. Some proposals needed no intergovernmental approval, such as the proposed outsourcing of printing and translation services, the relocation of administrative functions away from high-cost centres, the tightening of procedures for procurement and the delegation of management responsibility from the Secretary-General to the Deputy Secretary-General. With regard to the latter, the ACABQ argued that leadership proposals should be left for consideration to the next Secretary-General. Proposals in the area of budget and finance were considered unnecessary since the current processes were working well. On governance, it was proposed to allow negotiations on administrative matters to take place in smaller meetings by allocating work to selected working groups with limited membership or to an elected executive committee. In early May 2006, the General Assembly essentially rejected the SecretaryGeneral’s proposals by 121 votes. A total of 50 member states supported his proposals, including the United States, the members of the European Union, Australia, Canada, Japan, New Zealand, Republic of Korea, Switzerland, and Turkey. The SecretaryGeneral’s request for increased budgetary discretion and to establish small governing groups had caused an uproar among the Group of 77. It was felt that this would further increase the influence of major donors over the use of budget resources and usurp the power of the General Assembly. Developing countries wanted to retain their traditional control over budget and personnel issues. This vote broke a decades-long tradition to take decisions by consensus in order to ensure support by the main contributors. Quite unusually, a number of proposals also met with resistance from the UN Staff Union, which was critical of proposals to hand over jobs to private businesses and expressed a vote of ‘no confidence’ in the Secretary-General. In parallel with the UN’s efforts to follow through with the reform pledges of the UN World Summit, the United States Congress revisited the legislation on UN reform. Rather than withholding contributions if the UN did not achieve the reform benchmarks, funding was finally released to avoid confrontation with the other member states and a major financial crisis at the UN. Moreover, by the end of 2006, the prevailing climate of mistrust and opposing priorities started to improve. United States 26 Investing in the United Nations: For a Stronger Organization Worldwide, Report of the SecretaryGeneral, UN document A/60/692, 7 March 2006.

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Ambassador John R. Bolton resigned at the end of 2006 and was replaced by Zalmay Khalilzad in April 2007.

CHAPTER THREE

NEW REFORM INITIATIVES: THE CHALLENGE OF WORKING TOGETHER, 2006 TO 2009 A. THE NEW SECRETARY-GENERAL BAN KI-MOON Ban Ki-moon took over on 1 January 2007 from Kofi Annan, who left after a ten-year term. The bitter climate of suspicion and mistrust between member states during most of 2006 gave way to a more conciliatory style during 2007, with improved chances for agreement on much-needed decisions. Ban was confronted with a number of difficult challenges. The developing countries considered the ongoing reform process as intended to reduce their influence. The United States was unhappy with the pace and direction of the reforms, which were considered not to address key demands in such areas as human rights, oversight, mandate review, and management reform. Finally, the failure of Security Council reform had strongly disappointed a number of member states that had hoped to elevate their position in the Organization. Ban inherited a number of ongoing reform initiatives for which the results had been mixed. Overall progress had been slow. The newly appointed managers took considerable time to provide the requested details on reform proposals initially formulated by the previous UN management. Moreover, the new Secretary-General had taken over a large project to renovate the New York Headquarters facilities which was at the early stages. This project was managed under the Capital Master Plan and had an estimated cost of USD 1.8 billion. It was plagued by cost increases and funding problems and was finally approved in April 2008. One of the first major reform initiatives launched by Ban focused on the restructuring of the disarmament and peacekeeping operations in early 2007. 1. Disarmament Reform Ban initially proposed to integrate the Department for Disarmament Affairs (DDA) into the Department of Political Affairs (DPA) and to downgrade the head of DDA to the level of Assistant Secretary-General. Both proposals met with resistance from member states. The developing countries, in particular, were strongly opposed to a downgrading of the DDA, stressing that any structural change should lead to a strengthening, not weakening, of the UN’s work in the field of disarmament, arms control and non-proliferation. Following a round of extensive consultations with member states, the Secretary-General revised his proposal, which was approved by the General Assembly in March 2007.1 The DDA was reconstituted as a separate office in the secretariat, headed by a ‘high representative’ at the Under-Secretary-General level, 1 Strengthening of the Capacity of the Organization to Advance the Disarmament Agenda, UN General Assembly resolution A/RES/61/257, 15 March 2007.

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reporting directly to the Secretary-General. By maintaining budgetary autonomy and the integrity of the existing structures and functions, the new Office of Disarmament was not too different from the previous department, except that more emphasis was now placed on a strengthened advocacy role of the head of the Office to overcome the current stalemate in the field of disarmament. 2. Peacekeeping Reform The number and size of peacekeeping operations (PKOs) had increased considerably during recent years.2 UN peacekeeping operations had an unprecedented 100,000 peacekeepers in the field, including some 80,000 military personnel, and it was expected that the number could reach 150,000 by the end of 2007. Efforts to strengthen the UN’s overall peacekeeping work began in 2000, following the ‘Brahimi Report’. In 2005, the General Assembly adopted a five-year reform agenda, ‘Peace Operations 2010’, which aimed to increase the professionalism, management, and efficiency of the UN’s peacekeeping. Follow-up actions included an increase in personnel, the harmonization of the conditions of service of field and headquarters staff, the development of guidelines and standard operating procedures, and improving the partnership arrangements between the Department of Peacekeeping Operations (DPKO) and the UNDP, African Union and European Union). Ban proposed to further enhance UN peacekeeping capacities by augmenting the DPKO with the new Department of Field Support (DFS). The new entity would serve as the co-ordinator for field support needs, including the administration and management of personnel, communication and information technology, finance, procurement, and logistics in UN peacekeeping operations. DPKO would therefore concentrate on policy planning and implementation, as well as on providing strategic direction for UN peacekeeping activities. DFS was taking on the role of a key enabler. Although member states expressed concerns regarding potential overlap and problems in co-ordination and communication between the two departments, the restructuring was approved in principle by the General Assembly in March 2007.3 The Assembly still requested comprehensive details on the functions and financial, administrative, and budgetary implications of the initiative. This was done and final approval of the peacekeeping restructuring was granted in June 2007.4 The new organizational setup put an additional strain on UN-internal co-ordination. In order to enhance the integration between DPKO and DFS, seven Integrated Operational Teams (IOTs) were established, combining political, military, police, support and administrative specialist officers. IOTs provide operational guidance and support to field officers and serve as the entry point at UN Headquarters for troop-contributing countries. Additional co2

PKOs are established by decision of the Security Council and the planning and monitoring process is entrusted to the UN secretariat. The operation itself is directed in the field by the Special Representative of the Secretary-General and the Force Commander, using the resources provided by troop-contributing countries. 3 Strengthening of the Capacity of the Organization in Peacekeeping Operations, UN General Assembly resolution A/RES/61/256, 15 March 2007. 4 Strengthening the Capacity of the United Nations to Manage and Sustain Peacekeeping Operations, UN General Assembly resolution A/RES/61/279, 29 June 2007.

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ordination for complex UN operations was provided by an Integrated Mission Task Force which covered political, security, development, human rights and humanitarian issues and put together planners from DPKO, DFS, Department of Management, Department of Political Affairs, Peacebuilding Support Office, Peacebuilding Commission, Peacebuilding Fund, UNDP/Development Operations Co-ordination Office (DOCO) and the Office for the Co-ordination of Humanitarian Affairs (OCHA). B. FOLLOW-UP ON PREVIOUS REFORM INITIATIVES, 2006 TO 2009 1. Terrorism Convention The approval of a Comprehensive Convention on International Terrorism (CCIT), which would trigger legal obligations for member states, had been on the General Assembly’s agenda since 1996. An Ad Hoc Committee on the Comprehensive Convention on International Terrorism was established to develop a legal framework for such a convention, and proposed a draft text in 2002. The definition of terrorism had been a dividing factor during the negotiations. The Organization of the Islamic Conference stressed the necessity of a clear distinction between terrorism and the legitimate right of citizens to resist foreign occupation. The 2005 World Summit could not agree on a definition of terrorism but agreed to develop a counter-terrorism strategy. Although not the hoped-for CCIT, agreement on the Global Counter-Terrorism Strategy in September 2006 was expected to create momentum for agreement on the Convention. The Co-ordinators of the Ad Hoc Committee proposed a new 2007 package proposal which focused on the integrity of international humanitarian law and the Assembly reviewed the implementation of the Strategy in September 2008. The new attempt to reach agreement failed, however.5 As of July 2009, key unresolved issues included the definition of terrorism and ‘terrorist acts’, the concept of ‘state terrorism’ as a form of terrorism, the activities of armed forces of the state during armed conflict, the title of the Convention and the timing of the proposed high-level conference on terrorism. The delegations also disagreed about which proposal to base the convention on, the initial 2002 draft or the 2007 package. Finally, delegations that had recently experienced terrorist attacks felt that an early conclusion of the negotiations was imperative. India, for example, described the recent Mumbai attacks and those throughout the world as the biggest threat to the world. 2. Responsibility to Protect The recognition of the ‘Responsibility to Protect’ was possibly the most important outcome of the 2005 World Summit as previously noted. The commitment, however, was mainly symbolic and the subsequent challenge would be to agree on how to operationalize the new concept. In took until January 2009, when the Secretary-General

5

Discussions on Terrorism Convention End without Agreement, Reform the UN note, 30 July 2009.

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proposed a three-pillar approach.6 Pillar one stresses that states have the primary responsibilities to protect their population, pillar two addresses the commitment of the international community to provide assistance to states in building capacity to protect their population, and pillar three focuses on the international community’s responsibility to take timely and decisive action to prevent and halt genocide, ethnic cleansing, war crimes and crimes against humanity when a state is failing to do so. Pillar three would involve specific measures under Chapter VI of the UN Charter, collaboration with regional organizations under Chapter VIII and coercive measures under Chapter VII. A number of possible actions were proposed under pillar three, including the appointment of fact-finding missions to investigate alleged violations, notice to leaders on whether states fail to meet obligations, targeted diplomatic sanctions including travel, financial transfers, luxury goods and arms. In addition, it was suggested that principles be developed to guide the application of coercive force and that a UN rapidresponse military capacity be established to confront atrocity crimes. Finally, the Secretary-General proposed to create a new UN office covering the issues proposed. The proposals were debated in July 2009, which marked the first time since the concept was adopted at the 2005 World Summit. Although no agreement was reached during the 63rd session, the Assembly decided in September 2009 to continue its deliberations during the 64th session of the General Assembly on how best to implement the responsibility to protect. 3. Audit Committee and Oversight Review The 2005 World Summit had approved a study to create an Independent Oversight Committee to assist the Secretary-General and the General Assembly in better exercising their governance responsibility. Renamed the Independent Audit Advisory Committee, the new body was approved in principle by the end of 2005 with terms of reference and membership to be decided subsequently. These constituted the main areas of contention for a considerable time. The member states were not able to approve its terms of reference, in particular its composition and the process for selecting its members. This included disagreement on issues of geographical representation and the appointment of members by either the Secretary-General or the General Assembly. Contrary to the United States and a number of developed countries, the G77 supported only a purely advisory role of the Committee vis-à-vis the General Assembly in order not to reduce the developing countries’ power over the budget process. Agreement was finally reached in 2007. With regard to the election of members, it was decided that regional groups would propose ten candidates, six of whom would be elected by the General Assembly. As an optional process, candidates could be evaluated through an external institution, such as the International Organization of Supreme Audit Institutions (INTOSAI). Developed countries had not been successful when arguing that such evaluation should be obligatory. Nevertheless, it was hoped that such attestation would improve a candidate’s chances to be elected to the Committee. Developed 6 Implementing the Responsibility to Protect, Report of the Secretary-General, UN document A/63/677, 12 January 2009.

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countries also initially opposed the possibility of re-election of members. It was finally decided that members would be appointed for a three-year term with the possibility of one re-election, thus being able to serve a maximum of six years each. The first Committee members were appointed in November 2007 and the first meeting was held in January 2008. The terms of reference for the Committee will be reviewed in three years. In addition to the establishment of the Independent Audit Advisory Committee, a fundamental review of the oversight and audit system had been launched in 2006. The previous Secretary-General had appointed a Steering Committee of six international experts to conduct an external review of the UN’s oversight and audit mechanisms in the first half of 2006; the technical evaluation was conducted by an international consultant company, PricewaterhouseCoopers. The final report was issued in July 2006 and included the following recommendations: • Reducing the size of the Fifth Committee to improve decision making on administrative and budgetary matters; • Enhancing the independence of the Office of Internal Oversight Services (OIOS); • Relocating the OIOS evaluation and management consulting function to the Department of Management and the OIOS inspection functions to the Office of Legal Affairs; •

Abolishing the Joint Inspection Unit (JIU);

•

Adopting a system-wide UN Code of Governance;

•

Strengthening results-based management (RBM) and budgeting (RBB);

•

Implementing an enterprise-wide risk management framework.

The report of the Steering Committee attracted a good deal of criticism. Member states objected that the Committee had examined the UN’s oversight mechanisms from a private-sector perspective and did not take the specific nature of its operations sufficiently into consideration. The G77 objected to reducing the size of the Fifth Committee and abolishing the JIU. The OIOS agreed that the execution of management consulting functions and preparation of programme performance reports represented a conflict of interest and should be discharged. It strongly objected, however, to the proposed relocation of its evaluation and inspection functions and issued a counter-report in response to the Steering Committee. Instead of relocating the functions, additional resources were requested to establish two new units in the existing investigation division: a special task force to investigate sexual exploitation and abuse and a white-collar crime task force. The issue of the OIOS’s independence was limited to the funding arrangement; the OIOS objected to negotiating funding with the entities it was required to audit. Very little was achieved during 2007. Member states agreed to transfer the management function and the preparation of the programme performance report from the OIOS to the Department of Management. Some additional posts to strengthen the OIOS investigation division were approved. While it was agreed that the OIOS’s in-

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dependence needed to be enhanced, member states demanded reassurance that the Fifth Committee’s control over the OIOS budget would be maintained. 4. Mandate Review As indicated above, the mandate review had been one of the contentious parts of 2005 World Summit reform. Approximately 9,000 mandates, many of which were renewed, were considered valid and sent by intergovernmental bodies (the General Assembly, the Security Council or ECOSOC) to the secretariat representing requests for specific actions. This is of particular importance for the budgeting process: Mandates are consolidated in the budget exercise and provide the foundation for preparing the biennial budget proposal. The mandate review was to identify outdated mandates or overlap for potential elimination. This was strongly supported by the United States and other developed countries, whereas many developing countries considered the exercise as a pretext for budget cuts and an attempt to eliminate politically inconvenient mandates (such as those dealing with Palestine). The mandate review was proceeding slowly. In view of the sensitive nature of the exercise, the review was not delegated to the Fifth Committee but negotiated by an informal Ad Hoc Working Group of the General Assembly on Mandate Review. In March 2006, the secretariat issued a report to facilitate the review and, on a dedicated website, presented the mandates. The review was to identify and resolve overlapping mandates from different organs addressing similar issues, and to address the lack of guidance on how to integrate older mandates with newer ones, the lack of information regarding the outcomes already achieved;, and the massive amount of unco-ordinated reports required by member states from the secretariat on each mandate. The review was to focus on the 7,000 mandates which were more than five years old. The Ad Hoc Working Group began meeting regularly from June 2006. Consultations were marked by deep divisions over the scope and purpose of the exercise. The Group launched Phase I by reviewing 399 non-renewed mandates issued only by the General Assembly. In October 2006, Phase I was concluded by declaring that 74 mandates had been completed. In November 2006, Phase II was launched by reviewing all mandates older than five years but renewed by recent resolutions of the General Assembly. This review was more contentious, and the process stalled in early 2007. Only in late April 2007 was the review formally re-launched, with reviews taking place according to thematic clusters. At the urging of developing countries, the review started with the cluster involving activities that are strongly supported by the United States, namely drug control, crime prevention and combating international terrorism. Latent disagreement continued during 2007 and the informal working group met only three times and work on the cluster was far from completed. In late 2007, the process was revived by addressing some of the developing countries’ concerns. It was agreed that a number of politically sensitive mandates would not be reviewed and that any savings resulting from eliminating development mandates would be redirected to other development mandates. With regard to the review methodology, mandates were organized in a matrix presentation according to two criteria: first, suitability of the mandate for current needs; second, efficiency and effectiveness of mandate delivery. Each mandate was to

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be placed in the appropriate category using information from the member states, the UN secretariat and implementing agencies. In early 2008, the intent was to move the work from format to substance. Delegations were expected to begin discussions of seven thematic clusters of mandates, including: effective co-ordination of humanitarian assistance efforts; maintenance of international peace and security; development of Africa; promotion of human rights; promotion of justice and international law; disarmament; and organizational, administrative and other matters. It was hoped that three clusters would be completed by July 2008. Due to the different interests involved, the review was going nowhere. Moreover, it was made extremely arduous by the lack of adequate information on each mandate. In particular, the secretariat had been unable to provide the costs for each mandate, because of existing accounting mechanisms. The obstacles identified – in particular, the lack of resource transparency – constituted sufficient justification for the General Assembly to discontinue the mandate review in September 2008. 5. Management Reform7 Management reform focused on procurement, information technology and human resources management issues. Procurement activities had surged from USD 300 million in 1997 to USD 2,000 million in 2006 due, among other things, to increasing peacekeeping activities. Main procurement items include air transportation services, petroleum products, food rations, freight forwarding, motor vehicles, telecommunications services, and construction services. The United States accounts for approximately 18 per cent of procurement contracts, followed by Russia with 10 per cent. The need for procurement reform became a key priority in 2006 after a number of fraud cases were uncovered in the Oil-for-Food Programme and in peacekeeping operations.8 A 2006 analysis of the UN procurement mechanisms, prepared by OIOS, the United States Government Accountability Office and Deloitte, found numerous flaws. This included lack of managerial oversight and controls, outdated procurement processes, poor governance structure, and lack of sufficient financial and human resources. Staff dedicated to procurement activities did not increase proportionally, causing backlogs and delays, and making procurement more prone to errors. Finally, concern was expressed over the loss of overall responsibility associated with increased delegation of procurement authority in the field. In December 2006, the General Assembly approved the procurement reform. This included the implementation of control measures such as financial disclosure of procurement staff, whistle-blower protection, ethics and client service training, certification of procurement staff, post-employment restrictions, zero-tolerance policy for gifts and hospitality, and the promulgation of a Supplier Code of Conduct. Subsequently, an independent bid protest system was established. The Assembly also approved some 7 Irene Martinetti, ‘Secretariat and Management Reform’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 55 to 78. 8 The fraud cases were examined by the Procurement Task Force (PTF) and resulted in criminal investigations. The Task Force was winding down in early 2009, and the remaining caseload was transferred to the Investigation Division of OIOS.

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additional resources for capacity building to attract more vendors from developing countries. Discussions of procurement reform included a debate of the lowest cost versus best value principles for the acceptance of bids. Countries such as Russia and large developing countries supported the lowest cost principle, assuming that they would have a competitive advantage. Developed countries supported the best value principle, which includes not only price but also other factors such as the quality and environmental impact of products. With regard to the reform of the Information and Communication Technology (ICT) system, the follow-up to the March 2006 reform proposal ‘Investing in the United Nations’ had resulted in the establishment of a Chief Information Technology Officer (CITO) at the Assistant Secretary-General level. The CITO was to co-ordinate ICT operations at the secretariat. It was not until December 2008 that the General Assembly approved the Secretary-General’s proposal to consolidate the two main ICT offices, namely the Information Technology Services Division of the Department of Management and the Communications and Information Technology Service of the DPKO, into the Office of Information and Communication Technology headed by the CITO. The major ICT reform project was the configuration of a new, ambitious system-wide Enterprise Resource Planning System (ERP) covering finance and budget, human resources, supplies and central support. The new system would integrate and replace the aging Integrated Management Information System (IMIS) and various stand-alone applications. The ERP project was to cost up to USD 250 million for a project lasting three to five years. The proposal was considered insufficient by the Fifth Committee of the General Assembly and member states approved only the startup costs of USD 25 million. In accordance with the call by the 2005 World Summit, the main concern was the comprehensive reform of human resources management. Management was seen to be inefficient and outdated in essentially all aspects including the recruitment of candidates, evaluation practices, staff accountability systems, staff mobility, career development, and the harmonization of conditions of service. In response, the previous Secretary-General had put forward a number of recommendations in August 2006 to specifically address the past shift from a primarily headquarters-based organization to a field-based operation. These included the harmonization of conditions of service, the simplification of contractual arrangements, the establishment of a pool of peacekeeping staff, and the encouragement of staff mobility. The annual cost of the reform proposals was estimated to be USD 224 million per annum, mainly for the harmonization of the conditions of service. Finally, a one-time staff buyout, which had already been rejected by the 2005 World Summit, was proposed. During the initial months in office, the new Secretary-General, Ban Ki-moon, emphasized his commitment to a reform of the human resources system. Building on past proposals, he emphasized the need to enhance competition for jobs, eliminate certain employment guarantees and enforce the geographic and gender targets. His plan also included improved annual performance reviews, term limits for newly hired senior officials, and reform of the administration of justice. Ban publicly made a full disclosure of his personal financial position and urged his top officials to do the same to demonstrate more transparent financial dealings.

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Subsequent discussions and negotiations in the General Assembly were characterized by delays. Additional reports and renewed submission were requested. Even when all reports were available, negotiations were frequently postponed during 2006 and 2007 because of more pressing issues such as negotiations on the regular budget or the proposed restructuring of DPKO. Reform proposals with implications not only for the UN but for the UN system as a whole were submitted to the International Civil Service Commission (ICSC) for review. The Commission subsequently came out strongly in support of immediate action to consolidate contractual arrangements. In April 2008, the General Assembly held a thematic debate on management reform. Little, however, was achieved. Member states supported the modernization of human resources management and encouraged further efforts to achieve a better gender balance in 2009. In December 2008, the General Assembly finally approved a 13part resolution on human resources management reform, which was implemented as of 1 July 2009.9 This included the simplification of contractual arrangements and the harmonization of conditions of service. The existing three sets of staff rules and 11 types of contracts were replaced by one set of staff rules and three types of appointments, namely temporary contracts of less than one year, fixed-term appointments for requirements over one year and continuing appointments which are open-ended. Staff would be eligible to be considered for continuing appointments after five years of service. The type of contract was not tied to the source of funding or the duration of a single mission, as was previously the case, but was determined on the basis of service needs. Unlike the previous situation, all headquarters and field staff with fixed terms and continuing appointments received the same benefits and allowances. This was seen as providing for more equity for staff in the field, while reducing the administrative load and margin for errors. Member states were initially divided on the recommendation to establish a core cadre of 2,500 civilian career peacekeepers to staff new field offices more rapidly. The core cadre was to be financed from already authorized positions in peace operations and subject to rapid deployment and rotation. Whereas the developed countries supported the recommendation to professionalize peacekeeping, the G77 disagreed and argued that peacekeeping should remain a temporary function. Even Japan expressed scepticism, arguing that the establishment of fixed positions for temporary missions might result in future financial difficulties. General support was expressed for introducing mandatory mobility for all staff. This already existed for entry-level staff members, who were required to move twice across functions, departments or duty stations before qualifying for promotion. There was, however, some scepticism by the ACABQ, the JIU and member states with regard to the financial, administrative and management implications of the measure, its acceptance by secretariat staff and the preservation of institutional memory. With regard to the recruitment process, the key interest for member states was the issue of geographical and gender balance. Secretariat management was criticized for not doing enough and the Secretary-General was expected to reduce the number of 9 See Document VI: Human Resources Management, UN General Assembly resolution A/RES/63/250, 24 December 2008.

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under- or unrepresented member states within its staff by 30 per cent by the year 2010. It was further agreed that, for senior positions, no national of a member state should succeed a fellow national in the same post. The proposal for an expedited recruitment process was accepted but limited exclusively to surge needs, while the G77 rejected the proposal to reduce the number of days during which a vacancy must be advertised from 60 to 30. C. SECURITY COUNCIL REFORM, 2006 TO 200910 The 2005 World Summit had not managed to agree on a reform of the Security Council or to conclude the eight-year negotiation process which had centred on the consultations in the Open-ended Working Group. This was a major disappointment, particularly for those member states that had hoped to become permanent members, especially Brazil, Germany, India, and Japan. While the issues of expansion and veto privileges were most controversial, no consensus was in sight even on the Council’s working methods. The World Summit, however, had expressed support for continuous negotiations. A number of key proposals had been put forward in recent years: • The Group of 4 (G4) – Brazil, Germany, India and Japan – supported six new permanent and four new non-permanent members. • The ‘Uniting for Consensus’ group –Italy, Pakistan, Turkey, South Korea, Canada, Mexico and Argentina – opposed the addition of any new permanent members and instead advocated the addition of 10 longer-term non-permanent members under a new rotation schedule. • The African Group under the Ezulwini Consensus supported two permanent non-rotating seats for Africa with the right of veto and five non-permanent seats, with the African Union selecting the non-permanent African members. The permanent members announced their positions reluctantly. The United States supported the permanent membership of Japan and a small number of additional nonpermanent members. The United Kingdom and France essentially supported the G4 position, with an expansion of permanent and non-permanent members and the accession of Germany, Brazil, India and Japan to permanent member status, as well as an increased presence by African countries on the Council. China supported the stronger representation of developing countries. Other groups of states also put forward demands. The Arab League, for example, supported a permanent seat for Arab states. A group known as the Small Five States (S5), made up of Costa Rica, Jordan, Liechtenstein, Singapore, and Switzerland, focused on a reform of working methods with the aim of enhancing the accountability, transparency and inclusiveness of the Security Council.12 10

Jonas von Freiesleben, ‘Security Council Reform’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 1 to 20. 12 In addition, a number of other groups were active in the Security Council reform debate, including the Caribbean Community (CARICOM), the Eastern European Group (EEG), the Organization of the Is-

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A new start was attempted in January 2007 when Sheikha Haya Rashed Al Khalifa, the President of the General Assembly and chairperson of the Working Group, proposed five tracks to help member states restart consultations: the size of an enlarged Security Council, the categories of membership, the question of regional representation, the question of the veto, the working methods of the Security Council, and the relationship between the Security Council and the General Assembly.13 In order to assist the consultations on the five tracks, five facilitators were appointed who presented their report in April 2007. The facilitators concluded that the deep divisions among countries prevented agreement on any permanent reform. In order to break the impasse, the facilitators noted, however, that there was considerable interest in an intermediate approach to be reviewed after a number of years. The G4 criticized the fact that the facilitators did not indicate that a substantial consensus existed that new permanent seats should be created. The Uniting for Consensus faction insisted that there had never been a consensus on increasing the number of permanent seats. The African group reiterated their position on the Ezulwini Consensus. Despite opposition from the Uniting for Consensus faction, and at the insistence of the G4, the President of the General Assembly appointed new facilitators, namely ambassadors Heraldo Muñoz of Chile and Christian Wenaweser of Liechtenstein, to conduct consultations with member states. At the same time, Panama presented a proposal that attracted some attention because of its innovative approach to a re-election which could lead to a permanent seat. Initially, the size of the Council would be increased by adding six non-permanent seats. The new members would be given five-year terms, with the right to immediate re-election. Those re-elected four consecutive times would automatically receive permanent seats, but without the right of veto. In the end, the proposal was not pursued further. During the summer of 2007, the two facilitators offered some options for an intermediate approach with an expansion in the number of non-permanent members. Instead of indicating areas for possible consensus, the facilitators suggested reaching agreement by moving from consultations in the Open-Ended Working Group to negotiations in the Plenary of the General Assembly. In this way, the reform question would move from a consensus-based forum into a negotiation-based forum that allows for majority decisions. Member states that supported new permanent seats in the Council argued for the establishment of a format for negotiation and the setting up of a deadline for the conclusion of the negotiation process. The Uniting for Consensus group stated its opposition to new permanent members and suggested exploring an intermediate approach. In July 2007, Brazil, India, and South Africa announced that they had agreed to work together for permanent seats on the Council under the auspices of the Trilateral lamic Conference (OIC), GRULAC (Latin American and Caribbean Group), PSIDS (Pacific Small Island Developing States), WEOG (Western European and Others Group) and GUAM (Georgia, Ukraine, Azerbaijan, Moldova). 13 Report of the Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, General Assembly Official Records, Sixty-First Session, Supplement No. 47, UN document A/61/47, 2007.

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Commission of the India-Brazil-South Africa Dialogue Forum (IBSA). IBSA had been meeting regularly since the 1990s on development issues; however, this was the first time its name was mentioned in connection with the reform of the Security Council. The emergence of IBSA as a new player in the reform process initially caused some fears of a new North-South divide. Towards the end of the Assembly session in September 2007, a group of 27 member states, including the IBSA countries and Nigeria, submitted an alternative proposal for continuing negotiations. The proposed elements for negotiations were expansion of both permanent and non-permanent categories; greater representation of the developing countries; representation of the developed countries and those with transition economies to reflect contemporary world realities; comprehensive improvement of the working methods of the Security Council, including greater access by island and small states; and provisions for a review. The inclusion of Nigeria indicated that the group supported a second permanent African seat. Discussions in November 2007 revealed huge differences in opinion on how to move the process forward. Brazil, Germany, India and Japan supported a speedy move to intergovernmental negotiations and expressed their willingness to pursue a solution outside the Open-ended Working Group. Although Brazil, Germany and Japan agreed to negotiate the option of an intermediary approach, India disagreed. The Uniting for Consensus faction supported an intermediary approach, but demanded that the framework and modalities for negotiations should be agreed in the Working Group before any intergovernmental negotiations could begin.14 In December 2007, Sgrjan Kerim, the President of the 62nd General Assembly, announced the establishment of a Task Force to assist him in drafting a final report to the General Assembly on the proposed future of the Ad Hoc Working Group.15 1. The Overarching Process Also in late 2007, Germany launched an ‘overarching process’ outside the Ad Hoc Working Group, aimed at breaking the deadlock and creating a text based on which intergovernmental negotiations could be launched. The German initiative included a group of 43 countries, with Cyprus, Malaysia, the Netherlands, Romania and the United Kingdom as core members. The approach was supported by Japan and Brazil. The Uniting for Consensus nations expressed serious reservations and did not take part in the ‘overarching process’. Italy and Pakistan insisted that the Ad Hoc Working Group was the only legitimate place for consultations on Security Council reform and continue to argue that the aim should be consensus, not voting. The outcome of the ‘overarching process’ was presented by Cyprus in March 2008. The proposal assumed that a solution would be based on an intermediary approach, but 14 Jonas von Freiesleben, General Assembly Debates Security Council: Still Slow Going, Center for UN Reform Education, New York, 15 November 2007 at www.centerforunreform.org. 15 Report of the Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, General Assembly Official Records, Sixty-Second Session, Supplement No. 47, UN document A/62/47, 2008.

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left much open for negotiations such as the size of an expanded Council, the term length of the new seats, and how many years the Council would follow the intermediate formula before conducting a review. Moreover, the proposal focused only on ‘points of convergence’ and left for future negotiations the main areas of disagreement, such as the question of veto power. Half of the document was devoted to changes in the Council’s working methods. The outcome of the ‘overarching process’ was heavily criticized by the Uniting for Consensus faction, the African group and India. Italy argued that the Ad Hoc Working Group should first establish a framework for further consultations, leading to eventual intergovernmental negotiations. Only after such a process would the Uniting for Consensus group participate in assembling a basic text for negotiations.16 Although the criticisms had stalled the German initiative, the Chairman of the Working Group and the Task Force were determined to move the process forward by delivering their first report in mid-2008. It highlighted the intermediary approach, called the ‘timeline perspective’, but failed to address the question of how to initiate intergovernmental negotiations. This was done in the Chairman’s draft progress report to the Open-ended Working Group taken up in September 2008 towards the end of the 62nd General Assembly session. As in previous years, the draft report proposed to continue negotiations during the coming 63rd session of the General Assembly. In addition, the report included a proposal that the Working Group should continue its work through intergovernmental negotiations aimed at a solution based on the ‘widest possible agreement’. If approved, this decision would move the reform of the Security Council away from the consensus-based Working Group to negotiations in the Plenary of the General Assembly. Moreover, the requirement for the ‘widest possible agreement’ would allow a decision to be made by majority vote.17 The G4 expressed support for the Chairman’s draft and demanded that member states abandon the Working Group and instead initiate intergovernmental negotiations in a plenary session of the General Assembly as soon as possible. Italy and the Uniting for Consensus faction objected and countered that an agreement on the framework and modalities should be worked out in the Working Group before any actual negotiations could take place. In the absence of a consensus, the Chairman of the Working Group withdrew the draft report. In order to prevent the talks from collapsing, South Africa and 50 other countries reintroduced the Chairman’s draft as their own. Germany proposed moving to a consensus agreement on the South African text. At that stage, there was considerable commotion among member states, with delegates screaming, running, and shouting in different languages. Pakistan and India traded insults, setting off a series of highly undiplomatic exchanges. Amid the noise and with the room still in disarray, the Chairman of the Working Group asked for consensus on the adoption of the South African draft, gavelled that decision almost immediately and closed the 16 Jonas von Freiesleben, Member States Discuss Security Council Reform Again: A Never-Ending Process?, Center for UN Reform Education, New York, 16 April 2008 at www.centerforunreform.org. 17 Jonas von Freiesleben, Member States Balk at Latest Report on Security Council Reform, 5 September 2008 and Member States Renew Mandate for Working Group on Security Council after Intense Discussions, 16 September 2008, Center for UN Reform Education, New York, at www.centerforunreform.org.

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meeting. Several delegations were outraged. Italy said that there was no consensus since it had requested the floor but was ignored. Egypt called the situation a farce and Pakistan said its worst fears were coming true. The conclusions of the Working Group were subsequently approved by the Plenary of the General Assembly and grudgingly accepted by the Uniting for Consensus group.18 This included the commencement of intergovernmental negotiations no later than 28 February 2009. The outcome was called historic and a breakthrough and largely hailed as a victory for the Group of 4. Italy and the Uniting for Consensus group agreed to negotiations. Alternatively, the G4 would have stopped what they called ‘the never-ending working group’ and negotiated freely. The United Kingdom stated that the decision represented a move from a discussion of procedure to a discussion of substance. The President described it as a ‘very dramatic final stage of the 62nd session’. 2. Intergovernmental Negotiations The Open-ended Working Group prepared the framework and modalities for the intergovernmental meetings from November 2008 to January 2009. In February 2009, intergovernmental negotiations were launched by an informal plenary meeting of the General Assembly with the appointment of the chairman, Ambassador Tanin of Afghanistan. The work plan included three rounds of negotiations in 2009. During the first round, member states presented their views. This was followed by more in-depth negotiations in round two, before continuing during the third round to seek a solution that could get the widest possible political acceptance by member states. The Working Group would finally submit a report to the General Assembly at the end of the 63rd session in September 2009, including any agreed-upon recommendations.19 During the first round of negotiations in March and April 2009, no major changes in the various positions were revealed. The majority of states called for a ‘composite paper’ which could be used as a basis for negotiations. A few delegations, including Italy, opposed the compilation of the paper, referring to existing documents. In May 2009 and June 2009, the second round was presented by Chairman Tanin with his summary overview of the first round, assembling previous proposals on Council reform. Regarding the size of the Council, options for the number of members range from the low twenties to the mid-twenties. In the categories of membership, the principal options were new permanent members, new non-permanent members, or a new category of longer-term non-permanent members. The assessment of any arrangement by means of a review or challenge was seen as a logical entry point for negotiations during the second round. This was closely linked to the concept of an inter-

18 See Document IV: Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, UN General Assembly decision A/DEC/62/557, 15 September 2008. 19 Lydia Swart, Countries Welcome Work Plan as Security Council Reform Process Commences New Phase, Center for UN Reform Education, New York, 24 February 2009 at www.centerforunreform.org.

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mediary reform model which could be made permanent during a later review conference. The second round in May and June 2009 included 26 meetings with active participation by delegations. Member states reiterated their previous positions and showed little flexibility. Italy and the Uniting for Consensus faction argued against adding new permanent members to the Council, while also supporting limitations to the current right of veto in certain cases such as crimes against humanity and genocide. Others expressed support for an expansion of permanent and non-permanent seats and the accession of Germany, Brazil, India and Japan to permanent member status. South Africa recalled the African position on composition as described in the Ezulwini Consensus. France came out for the first time in support of a permanent seat for an Arab member state. India supported full veto rights for new permanent members, and the African countries argued that new permanent members should be granted this privilege as long as it existed. The intermediate solution attracted considerable support, especially from France and Britain, in view of the deep differences regarding a longer-term solution.20 Germany argued that the concept of a review conference or ‘challenge’ would ensure that countries that gained their seats through the reform could be voted off in case their performance did not meet member states’ expectations. The concept was rejected by the United States and the Group of African States, which argued that this approach sought to retain the status quo under the guise of accountability. With regard to the Security Council’s working methods, the Small Five Group urged improving transparency in the Security Council’s reporting to the General Assembly, holding more open briefings and restricting the application of the veto. The permanent members were united in their opposition to any limitations or changes in the current veto structure. It was argued that the issue of working methods should be taken out of the reform agenda of the Assembly and only be covered by the Security Council itself. After the end of a reflection period in August 2009, the informal Plenary of the General Assembly met for a third round of intergovernmental negotiations during the first three days in September 2009. No agreement was in sight. The General Assembly agreed, however, to continue intergovernmental negotiations on Security Council reform in an informal Plenary of the General Assembly at its 64th session until September 2010.21 Negotiations during the 63rd session of the Assembly had reconfirmed that none of the existing models was likely to garner the majority needed to pass. Faced with this reality, interest in an intermediary model was growing. This would create a new category of seats with a duration of anywhere from 3 to 15 years and the possibility of re-election after a review conference. Along with these new seats, a small number of non-permanent members with two-year terms would also be added to the Coun20

More States Are Leaning towards an Intermediate Solution, Reform the UN note, New York, 6 July 2009, at http://www.reformtheun.org. 21 Report of the Open-ended Working Group on Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, Official Records of the General Assembly, Sixty-Third Session, Supplement No. 47, UN document A/63/47, 2009, page 3.

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cil. The veto would not be extended to the new category of members, but it has been suggested that this question could be taken up by the review conference. Although the intermediary model appears to have tentative support from member states of the Group of 4, the Uniting for Consensus group and the permanent five, it was still rejected by the African group under the Ezulwini Consensus. D. SYSTEM-WIDE COHERENCE OF UN OPERATIONAL ACTIVITIES, 2006 TO 200922 The 2005 World Summit had approved a reform agenda in the area of development, security, human rights and management. One of the main reform follow-ups was to enhance the ‘system-wide coherence of the UN’s operational activities’. This was considered to fall under development issues, which also included the dominant themes of the achievement of MDGs, increase in ODA and trade facilitation. Specifically, paragraphs 168 and 169 of the Outcome Document pledged to support ‘stronger systemwide coherence’ by implementing measures in the area of policy, operational activities, humanitarian assistance and environmental activities. The decision represented a synthesis of a number of activities which had been under consideration for some time. In particular, there was the ongoing reform of operational activities at the country level aimed at ‘a more effective, efficient, coherent, co-ordinated and better-performing UN country presence’, including a strengthened role for special representatives, RC or humanitarian co-ordinator, and a common management, programming and monitoring framework. The Secretary-General was requested to prepare proposals for ‘more tightly managed entities’ in the fields of development, humanitarian assistance and the environment. On the environment, and with reference to the French-supported proposal to create a new world environment organization, it was agreed that members should explore the possibility of a more coherent institutional framework for environmental activities in the UN system, including a more integrated structure, building on existing institutions, internationally agreed-on instruments, treaty bodies and specialized agencies. On humanitarian assistance, members pledged to strengthen the capacities of developing countries to respond to natural disasters. They also agreed to strengthen the effectiveness of the UN’s response to humanitarian crises by improving, among other things, the Central Emergency Revolving Fund (later known as the Central Emergency Response Fund or CERF). Finally, they pledged to improve the mechanisms for the use of emergency standby capacities in case of humanitarian emergencies. On policy, the members pledged to co-ordinate all the various representations of a given country on the governing bodies of the numerous development and humanitarian agencies to ensure coherent policy and consideration of horizontal policy themes such as sustainable development, gender and human rights. In addition to consolidating a number of previous efforts, the coherence-inspired approach was also based on a report of the UN System Chief Executives Board 22 Jonas von Freiesleben, ‘System-wide Coherence’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 37 to 54.

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(CEB).23 The CEB,24 representing the Executive Heads of the UN system organizations under the chairmanship of the UN Secretary-General, submitted a report in the lead-up to the preparations for the 2005 World Summit entitled ‘One United Nations: Catalyst for Progress and Change’.25 The report provided an account of how UN system organizations were working together to assist countries in achieving the objectives of the MDGs and ways in which the follow-up to the Millennium Declaration was contributing to greater coherence and effectiveness in the UN system’s work. It was argued, however, that much more needed to be done to build ‘One UN’. This was to be achieved by building stronger links between the normative and the operational work of the system and by overcoming the fragmentation inherent in system structures. To achieve this aim, it was considered necessary to unify the UN system presence at the country level, intensify efforts to share best practices, employ better information technology and produce reliable, standardized data. The CEB also called for system-wide action to evaluate UN performance in terms of its impact. In response to the 2005 World Summit, the Secretary-General established the Highlevel Panel on United Nations System-wide Coherence in Areas of Development, Humanitarian Assistance and Environment to prepare new reform proposals. The Panel was to explore the UN’s operational activities to assess the comparative advantage of the UN system and areas of overlap among UN agencies. This was to prepare the groundwork for a fundamental restructuring of the operational work to support the achievement of the MDGs. The High-level Panel comprised 15 members; the Co-Chairs were Prime Minister Shaukat Aziz of Pakistan, Prime Minister Luísa Dias Diogo of Mozambique and Jens 23 First Regular Session of CEB 2005, Mont Pèlerin, Switzerland, 9 April 2005, CEB document 2005/1, 1 June 2005 and Second Regular Session of CEB 2005, New York, 28 October 2005, CEB document 2005/2, 2 December 2005. 24 For a detailed description of the CEB system, see Appendix II: UN Inter-Agency Co-ordination Mechanisms. The CEB brings together 30 organizations of the UN system to further co-ordination and cooperation on a whole range of substantive and management issues. It includes the following organizations: Chairmanship: United Nations (UN). Membership of UN and specialized agencies: Food and Agriculture Organization of the United Nations (FAO); International Civil Aviation Organization (ICAO); International Fund for Agricultural Development (IFAD); International Labour Organization (ILO); International Maritime Organization (IMO); International Monetary Fund (IMF); International Telecommunication Union (ITU); United Nations Educational, Scientific and Cultural Organization (UNESCO); United Nations Industrial Development Organization (UNIDO); Universal Postal Union (UPU); World Bank; World Health Organization (WHO); World Intellectual Property Organization (WIPO); World Meteorological Organization (WMO); World Tourism Organization (UNWTO). Membership of related organizations: International Atomic Energy Agency (IAEA); World Trade Organization (WTO). Membership of UN funds, programmes, offices and departments: United Nations Children’s Fund (UNICEF); United Nations Conference on Trade and Development (UNCTAD); United Nations Development Programme (UNDP); United Nations Environment Programme (UNEP); United Nations High Commissioner for Refugees (UNHCR); United Nations Human Settlements Programme (UN-HABITAT); United Nations Office on Drugs and Crime (UNODC); United Nations Population Fund (UNFPA); United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA); World Food Programme (WFP). Observers: Joint United Nations Programme on HIV/AIDS (UNAIDS); Office of the High Commissioner for Human Rights (OHCHR). 25 See Document I: One United Nations, Catalyst for Progress and Change, Chief Executives Board of the UN System, July 2005.

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Stoltenberg, Prime Minister of Norway.26 Unlike most previous Commissions, which had been chaired by ex-presidents, the panel was co-chaired by active prime ministers. The aim was to ensure that countries whose panel members presently held high political office would own the process and thus would be more likely to move it forward and persuade others to go along with the conclusions. The work of the Panel was supported by a small secretariat based in New York. Established in February 2006, the Panel was given a very ambitious deadline: it was to complete its study by September 2006, so that the General Assembly could discuss the recommendations before the end of the year and possibly take action on them before Secretary-General Kofi Annan left office on 31 December 2006. The reform initiative came at a time when donor countries were increasingly disillusioned with the UN system’s operational activities. The Organization had gradually become marginalized within the international aid community, with development funds being channelled around the UN. Donor countries emphasized results and efficiency in operational activities as a means to ensure accountability to their home constituents. This issue had been under consideration for a number of years, including previous consideration by the OECD Development Assistance Committee. The High-level Panel was approached immediately after its inception by a group of European countries and Canada (G13)27 in January 2006. The group considered that the Panel should assess the strengths, weaknesses and comparative advantages of the UN, the global funds, bilateral donors and multilateral development banks, with a view to identifying the areas in which the UN played a value-added role and those which could be better performed by non-UN actors. On that basis, the Panel could consider streamlining the fragmented organizational structure at the country level and the governance functions of the UN operational system, including the elimination of duplication between the General Assembly, ECOSOC, the boards of funds and programmes, the governing bodies of specialized agencies, and the inter-agency mechanisms. The G13 stressed that the key aim of the exercise should be to improve the impact of UN operations by deepening and accelerating ongoing country-level reform. The Group supported an increase in the donor circle, including private funding, and a mechanism providing adequate, predictable and multi-year funding. The need to improve the fragmented gender architecture of the UN was specifically mentioned. Finally, it was suggested that the Panel could assess the implementation by UNDG of the OECD Paris Declaration on aid effectiveness, stating that all members of the UNDG should implement the related action plan. A number of G13 members also put forward their own proposals. Belgium submitted a paper on a ‘redesign of the UN development architecture’; the UK prepared a 26 Other Panel members were Gordon Brown of the United Kingdom, Mohamed T. El-Ashry of Egypt, Robert Greenhill of Canada, Ruth Jacoby of Sweden, Ricardo Lagos of Chile, Louis Michel of Belgium, Benjamin W. Mkapa of Tanzania, Jean-Michel Severino of France, Josette S. Shiner of the United States, Keizo Takemi of Japan, and ex officio members Kemal Dervis of Turkey as Chair of the United Nations Development Group (UNDG) and Lennart Båge of Sweden as Chair of the High-level Committee on Programme (HLCP). 27 Belgium, Canada, Denmark, Finland, France, Germany, Ireland, Luxembourg, the Netherlands, Norway, Sweden, Switzerland and the United Kingdom. The United States did not focus on the coherence process.

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discussion paper on ‘system-wide coherence, a vision for the UN’; and the Netherlands submitted a non-paper on ‘a UN operational system for development fit to face the challenges of reaching the MDGs’. The European countries had anticipated the creation of the High-level Panel and their position could be summarized as the following demands: • Merge the UN entities into three main operational organizations for development, humanitarian affairs and the environment; •

Integrate UNCTAD into either the WTO or the UNDP;

• Establish a World Environment Organization by merging UNEP, the multilateral environment agreements, UN-HABITAT and the Global Environment Facility. • Group UN agencies together at the country level under the ‘three ones’ principle: one UN team, under one single RC, with one UN programme. • Limit UN development work to poorer countries, ‘niche’ areas such as conflict prevention, post-conflict reconstruction and gender, and specialized areas such as health and food, while leaving issues such as development strategies, trade, finance and macro-economic policy to the WTO, World Bank and IMF. In February, the Dutch Minister for Development Co-operation, Agnes van Ardenne, argued that it made no sense to carve up development problems among 38 UN organizations. The result was too much overlap and too little efficiency, too much talk and too little action. As part of a massive overhaul, she suggested that at least a third of the UN organizations should be shut down and the remainder merged into large entities. She made it clear that donors would use ‘the power of the purse’ to put this into effect. The Netherlands is the main contributor to the UNDP budget. After the announcement of the formation of the high-level panel, van Ardenne followed up with an article saying that ‘the UN’s last best hope these days for realizing its full potential is nothing short of radical and rapid reform’.28 In contrast to the European countries and Canada, the Group of 77 was taken aback by the speed of the High-Level Panel initiative and was struggling to put together its position. In accordance with the traditional North/South divide, the developing countries, represented by the G77 and NAM, had traditionally taken a very different view. The fundamental characteristics of UN development work were considered to be universality, voluntariness, neutrality and multilateralism as well as the ability to respond to the development needs of recipient countries in a flexible manner. The developing countries supported a central role for the General Assembly and UNCTAD in decision-making on development. Rather than limiting the UN to a secondary role and ‘niche issues’, those countries suggested that the UN should assert its leadership over organizations such as the World Bank and IMF. Moreover, the developing countries supported a diverse organizational structure which was seen as offering a wider margin of choice and expressed their opposition to the consolidation of the existing mandates of those UN entities. Such efforts were considered to be a pretext to reduce de28

Radical U.N. Reform Now, Washington Times, 5 March 2006.

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velopment funding. There were, however, differences within the group of developing countries. While some larger countries had the capacity to make the best of the fragmented UN system, some of the smaller aid-recipient countries frequently complained about the draining procedures necessary to deal with the decentralized UN system – as many as 30 or 40 different entities. The High-level Panel held its first meeting in April 2006, followed by a dialogue between the CEB and the Panel during a retreat. The HLCP and the High-level Committee on Management (HLCM), the CEB’s two High-level Committees, had met jointly in February 2006 to prepare for the dialogue between the Executive Heads of the CEB. The consultations between the Panel and the CEB focused on the financing of UN development activities; coherence between normative, analytical, policy and operational work; co-ordination at the field level; and governance of the UN system. The Executive Heads stressed that the overall issue of policy coherence would need to be addressed by the Panel. At the country level, coherence was seen to depend on the advancement of ownership of the RC system by UN system organizations and ownership of the UN system support by the recipient countries. All members of CEB pledged their full support to the Panel in reaching conclusions that would advance the effectiveness and coherence of the system. During the summer of 2006, the Panel held consultations with representatives from the UN, governments and NGOs. For instance, in July 2006, the Panel consulted with over 50 civil society representatives from around the world in Geneva, Switzerland. The consultations focused on cross-cutting themes including gender equality, human rights, sustainable development and the environment. 1. High-Level Panel Report on System-Wide Coherence: Delivering as One The High-level Panel submitted its report ‘Delivering as One’29 to Secretary-General Kofi Annan in November 2006 and proposed a set of recommendations aimed at making the UN ‘greater than the sum of its parts’. The rationale for UN reform was seen as stemming from two basic flaws: the systemic fragmentation of the UN system and a lack of responsiveness to the need for country ownership. Addressing those issues was expected to make the UN more effective and better able to deliver results. A reformed UN, in turn, could become a driver in advancing the Millennium Development Goals and could capture the increases in development resources that were committed in 2005. With this in mind, member states were requested to shape governance structure, the funding framework and the business practices in accordance with the following ten specific reform areas:

29 See Document II: Delivering as One, High-level Panel on United Nations System-wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, UN Report A/61/583, 20 November 2006.

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1.1. ‘One UN’ Country Programme30 A ‘One UN’ country programme should be established by consolidating all UN programme activities at the country level, with one leader, one programme, one budget and, where appropriate, one office. This was intended to address the plethora of regional and country-level structures, which resulted in overlapping functions, poor coordination, duplicated activities, inadequate funding, weak governance and lack of focus on results. An empowered RC would manage the ‘One UN’ country programme. There should be UN system-wide ownership of the RC system. UNDP would be restructured to focus its operational work on strengthening coherence at the country level, and withdraw from sector-focused policy and capacity work being done by other UN organizations. In order to provide for the necessary independence, UNDP should establish an institutional firewall between the management of the RC system and its operational programme. The Office of the High Commissioner for Human Rights (OHCHR) should provide dedicated support to the RC system. Finally, the SecretaryGeneral should establish ‘One UN’ pilot projects in five countries by 2007 and, subject to satisfactory reviews, in 20 countries by 2009, 40 by 2010 and all the rest by 2012. 1.2. UN Sustainable Development Board A UN Sustainable Development Board should be established by merging the boards of UNDP/UNFPA, UNICEF and WFP to oversee the ‘One UN’ Country Programme. The Board would maintain an overview of the UN system to drive co-ordination and joint planning between specialized agencies, funds and programmes. The Board would report to ECOSOC. The UNDP Administrator should be appointed UN Development Co-ordinator with responsibility for UN development activities and would report to the Board. 1.3. UN Development Policy and Operations Group The Group should be established as a new inter-agency mechanism to co-ordinate the work of UN agencies and entities. It would integrate the UN’s global analytical and normative work with its country operations, service the UN Sustainable Development Board and manage a new system-wide funding device for the allocation of voluntary contributions to country programmes. Established within the existing CEB, the Group would subsume the existing UNDG and Executive Committee on Economic and Social Affairs (ECESA). Finally, it was suggested that the CEB should review its functions. 1.4. Global Leader’s Forum (L27) The Forum should be established within ECOSOC, comprising 27 heads of state (L27), and would convene annually. The new body would comprise the heads of state of half of the ECOSOC members. It would not have a decision-making function, but a 30

ture.

For a detailed description of the UN development system, see Appendix IV: Evolving Aid Architec-

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broader thematic mandate, providing international leadership in the development area. The L27 was seen as a counter-model to the exclusive club of the G8. 1.5. Relationship between UN and Bretton Woods Organizations The Secretary-General of the UN, the President of the World Bank and the Executive Director of the IMF should establish a formal agreement on their respective roles and relations at the global and country levels. This was proposed to support the developing countries, which demanded that the UN and the Bretton Woods organizations work more closely together. 1.6. MDG Funding Mechanism An MDG funding mechanism should be established to provide voluntary, multi-year funding for the ‘One UN’ country programmes from public, private and UN organizations. Each UN country office would have a unified budget supervised by the Sustainable Development Board and the Development Policy and Operations Group. Additional funding would be available at the discretion of the Board to reward highperforming organizations, and to fund programme gaps. The funding cycles of UN funds and programmes should be aligned to facilitate the overall strategic coordination of UN programme work. 1.7. Humanitarian Assistance Co-ordination between humanitarian agencies should be improved by establishing lead organizations. The CERF should be fully funded. The mandates of the UNHCR with regard to responsibilities for internally displaced persons should be clarified. Investment in risk reduction and early warning strategies should be increased. The UNDP should assume the lead role in the transition from relief to development and the WFP, FAO and IFAD should enhance inter-agency co-ordination on long-term food security. 1.8. Environment31 The Secretary-General should commission an independent assessment to improve international environmental governance. UNEP should be upgraded as the environmental policy pillar of the UN system. The Global Environmental Facility should be strengthened as the major financial mechanism for the global environment. The issue of sustainable development should be mainstreamed into the work of ECOSOC and upgraded within the UN institutional architecture. 1.9. Gender A UN entity on gender equality and women’s empowerment should be established by consolidating the three existing UN entities (United Nations Development Fund for Women (UNIFEM), Office of the Special Advisor on Gender Issues, and UN Division for the Advancement of Women). The new, enhanced entity should be ambitiously funded, headed by an Executive Director with the rank of Under-Secretary-General and have a strong normative, advocacy and programming role. Gender equality should 31 For a detailed description of the system of governance and inter-agency co-ordination in environment, see Appendix III : International Environmental Governance.

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be a component of the ‘One UN’ country programme, and the responsibility of all UN organizations. 1.10. Evaluation System and Harmonized Business Practices The CEB should lead efforts to establish a common UN evaluation system by 2008 and to upgrade and harmonize business practices across the UN system, such as human resource policies, planning and results-based management, as a driver for better performance and results. 1.11. Consolidation of Institutions The report refrained from advancing concrete proposals related to the controversial idea of merging existing institutions. However, it was recommended that the Secretary-General establish an independent task force mandated to eliminate duplicated functions. Concrete recommendations for mergers or consolidation should be made by the end of 2007. Up to 20 per cent savings per annum system-wide could be derived from this process, which would be recycled back into the ‘One UN’ country programmes. Many of the Panel’s recommendations were inspired the proposals of the Group of 13, as well as the resolutions concerning the Triennial Comprehensive Policy Review (TCPR) of Operational Activities for Development of the UN System. In the resolution, the General Assembly defines the policy framework for the operational activities and determines country-level modalities. The Report reaffirmed, expanded and reinterpreted many provisions of the 2001 and 2004 TCPRs. This proved to be problematic as there was no consensus among member states on these new interpretations. Moreover, the ‘One UN’ approach was an expanded endorsement of the reform process launched in 1997. It aimed at strengthening the role of the RC as representative of the UN system and leader of the UN Country Team. This structure had been gradually implemented in recent years with varying intensities. The 1997 reform also included the development of UN country plans which tended, however, to constitute no more than a patchwork of the development activities of the UN entities present in the particular country. Steps towards joint efforts were limited to a few cases and had involved only a small number of UN entities. Finally, the reform of the international environmental governance system called for by the 2005 World Summit had already been taken up in early 2006 during informal consultations of the General Assembly. Most of the European countries gave a ringing endorsement to the High-level Panel’s recommendations and offered widespread support for implementing the ‘One UN’ country programme. The report, however, was not taken up by the General Assembly during the remaining month of the Kofi Annan’s mandate, December 2006, as initially expected. Instead, formal consideration started only after the new SecretaryGeneral, Ban Ki-moon, had issued his own response to the Panel’s findings in April 2007. Nevertheless, in November 2006, soon after the launch of the report and before leaving office, Kofi Annan decided to move forward on some of the recommendations without member states’ formal endorsement. With regard to the ‘One UN’ pilot initiative, a number of countries had already expressed an interest in being considered. The initiative originally involved five volunteer countries, which subsequently grew to eight, namely Albania, Cape Verde, Mo-

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zambique, Pakistan, Rwanda, Tanzania, Uruguay, and Vietnam. Political leaders of three countries (Mozambique, Pakistan and Tanzania) had been members of the Highlevel Panel on UN System-wide Coherence. UNDG was mandated by the SecretaryGeneral to support the ‘One UN’ pilot countries32 and, in January 2007, brought together over 100 representatives of the UN system, RCs from the pilot countries and representatives of the governments of Cape Verde and Vietnam. The objectives were to facilitate a common understanding of ‘One UN’ and the concepts of the four Ones: ‘One Programme’, ‘One Leader’, ‘One Budgetary Framework’ and ‘One Office’. The UN agencies, though, were not overly enthusiastic. They questioned the appropriateness of reducing their autonomy at country level in favour of the still untested ‘One UN’ approach, in the absence of a clear political and financial green light from member states. A number of key principles were approved to guide the implementation of the pilots: inclusiveness; country leadership; flexibility in coherence design; and empowerment of RCs and country teams, with strengthened authority and accountability. In addition, it was agreed that ‘One Programme’ should balance core priorities, with focused and simplified programme documents. Programming around thematic clusters should be encouraged, and participating agencies could still support activities outside ‘One Programme’. The Secretary-General also requested that the HLCM, through the CEB, evaluate its business practices. In addition, he asked the CEB to undertake a review of its own functioning, as proposed by the High-level Committee. Juan Somavía, head of the ILO, and Pascal Lamy, head of the WTO, led the review. Finally, the SecretaryGeneral asked the General Assembly to establish the new position of an UnderSecretary-General for Gender Equality and Empowerment of Women who could take forward the recommendations on consolidating and strengthening the UN gender architecture. This, however, was rejected by the developing countries, which insisted that this issue should not be addressed independently from the overall process of UN coherence reform. 2. The G77 and NAM Position on the High-level Panel’s Report on System-Wide Coherence The High-level Panel’s original recommendations provoked strong reactions on the part of the G77 and NAM. In March 2007, they met with the Secretary-General to convey their concern.33 They appreciated the fact that the Panel avoided concrete proposals on the merging of different agencies. They also appreciated the fact that the Panel had acknowledged national ownership as the bedrock of any initiative and had advocated a demand-driven approach. The coherence initiative, however, was seen as constituting a cost-cutting exercise, which would introduce conditionality, reduce flexibility, marginalize developing countries and translate into decreased funding. Specifically, cost-cutting was seen as likely to result from the streamlining exercise at 32

Annual Overview Report of the CEB for 2006/2007, UN document E/2007/69, 24 May 2007. Detailed views were subsequently presented in a letter from the G77 and NAM to the SecretaryGeneral dated 19 March 2007. 33

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the national level. Results-based funding, human rights, gender and sustainable development concerns and humanitarian assistance were considered to constitute an attempt to introduce unacceptable conditions on international development assistance. Operational flexibility was seen to be limited through the pooling of funds at the national level. The establishment of the Sustainable Development Board created the risk that ECOSOC might be further marginalized. The Board as gatekeeper would reduce the scope for agencies, funds and programmes to create independent policy and provide normative advice and support to country authorities. The G77 and NAM were also sceptical of the ‘One UN’ approach and cautioned the Secretary-General against rushing into a hasty decision. It was argued that the pilot projects should neither create systemic changes in the methods of formulating, approving and financing country programmes, nor lead to a systematic expansion in the number of pilots without intergovernmental considerations. With ‘One Programme’ built around development goals, there was a risk that policy-based work could be defunded. On the issue of business practices, proposals previously rejected by the General Assembly should not be resubmitted. There was no ‘one-size-fits-all’ solution and there should be no restrictions on the sovereignty of national governments to determine their own development priorities or select their own development partners. With regard to the envisaged coordination with the UN, the G77 and NAM questioned whether the World Bank and IMF would be willing to participate. As an alternative to the current coherence approach, they suggested focusing on the major reasons hindering the achievement of the internationally agreed-upon development goals. They saw this as including the real key issue, namely the quantity, quality and predictability of development assistance from the UN system. 3. The Secretary-General’s Comments on the High-level Panel Report on System-Wide Coherence It took until April 2007 for the new, Secretary-General Ban Ki-moon, to submit his comments on the recommendations of the High Level Panel in a six-page report.34 Ban Ki-moon echoed the call to overcome the current fragmentation and gave broad, although cautious, support to the Panel’s recommendations. With regard to the ‘One UN’ pilot projects initiated by the previous SecretaryGeneral, Ban Ki-moon endorsed the exercise and reported that he had encouraged the Chair of the UNDG to proceed. He noted that the results would be presented to the governing bodies at the end of 2007 and highlighted the need for further consideration of the central concept of national ownership, the authority and accountability of the RC, the unified budgetary framework at the country level, the double role of the UNDP and the need to establish an internal ‘firewall’ between the function of managing the RC system and the function of UNDP programme manager. Interestingly, the Secretary-General proposed a somewhat different emphasis when recommending that 34 See Document III: Recommendations Contained in the Report of the High-Level Panel on United Nations System-Wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, UN Secretary-General Report A/61/836, 3 April 2007.

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the slogan ‘One UN’ should be changed to ‘Delivering as One’, as the intent was not to merge organizations and mandates, but rather to deliver together, while maintaining distinct identities and structures. No final position was taken on certain controversial issues which were considered to fall under the authority of member states. On the environment, the SecretaryGeneral noted that the recommendation to commission an independent assessment of the UN system of international environmental governance would be considered in light of the outcome of the ongoing consultation process. The General Assembly was already considering the institutional framework for the UN’s environmental activities during informal consultations and had also taken up the recommendations of the Panel. On gender, the Secretary-General expressed general support for the consolidation of the UN’s gender architecture, including support for the establishment of an Under-Secretary-General for Gender Equality and Empowerment of Women. He suggested, however, awaiting the outcome of the substantive discussions and consultations by member states before proposing any action. On the governance structure, the Secretary-General called on member states to consider proposals relating to the strengthening of ECOSOC and the establishment of a Sustainable Development Board. As for the consolidation of entities within the UN system, the SecretaryGeneral was not ready to take a decision on the recommendation to establish an independent task force to study the issue. One recommendation was not addressed, namely the proposal to review of the co-ordination between the UN, World Bank and IMF. With regard to other issues, the report referred to ongoing work. On the harmonization of business practices in the UN system, the Panel’s recommendations were seen as providing further impetus to already initiated reform measures and the SecretaryGeneral suggested that the CEB should submit a report on this matter to the General Assembly. On the inter-agency co-ordination of the Rome-based agencies WFP, FAO and IFAD on long-term food security in the humanitarian assistance, it was reported that discussions were already at an advanced stage. Regarding human rights, the Secretary-General supported the recommendation that the UN High Commissioner for Human Rights should ensure linkages between normative work and operational activities. And the review of CEB functions was already under way. 4. General Assembly Consultations on the High-level Panel Report’s on System-Wide Coherence The General Assembly considered the High-level Panel’s report and the SecretaryGeneral’s response to it in April 2007. While the G77 and NAM acknowledged that the Secretary-General’s report responded to some of their views, discussion developed along the traditional North/South divide. To move forward, the General Assembly President established an intergovernmental process to consider the recommendations of the High-level Panel. This was done by an informal Working Group on Coherence of the General Assembly under the guidance of two Co-Chairs, ambassadors Christopher Hackett of Barbados and Jean-Marc Hoscheit of Luxembourg. It was decided that the 48 recommendations of the High-Level Panel should be grouped into eight thematic categories for further consideration: ‘humanitarian issues and recovery’, ‘gen-

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der’, ‘Delivering as One’, ‘governance and institutional reform’, ‘environment’, ‘human rights’, ‘funding’ and ‘business practices’. Each cluster would be discussed separately, but the final decisions would be taken jointly and cover all clusters. In mid-June 2007, the consultation started with ‘humanitarian issues and recovery’. Members were briefed on the progress made in improving system-wide delivery of humanitarian assistance and informed that an evaluation of the work of the Office for the Co-ordination of Humanitarian Affairs (OCHA) was under way. The EU and the United States agreed that a stronger partnership between the UN, NGOs and national governments should ultimately lie at the heart of the ongoing reform efforts. The EU spoke in support of the actions by humanitarian co-ordinators to strengthen the RC system. With regard to the issue of internally displaced persons (IDPs), the EU, the United States and Japan recognized that UNHCR should act as co-ordinator for key UN and non-UN partners. They also welcomed the role envisaged for UNDP and its Crisis Prevention and Recovery Unit as co-ordinator of early recovery efforts. The efforts of the Rome-based agencies to guarantee long-term food security were also encouraged. The G77 and NAM expressed their concern that the recommendations on human rights, gender and sustainable development lacked clarity and could be misused to impose conditions on international development assistance. They were also concerned about a stronger mandate for UNHCR, arguing that IDPs should remain under the sole purview of the affected state since they differed fundamentally from cross-border refugees. It was noted that early recovery exceeds the mandate of UNDP. Such mandate extension and the suggested increased role for UN agencies, funds and programmes in humanitarian assistance were seen as negatively influencing the agencies’ primary role, namely to deliver development assistance. Finally, increased partnership between governments and NGOs was also considered contentious as ownership and leadership of humanitarian assistance and recovery programmes should remain with individual governments. On ‘gender’, discussions focused on the need to establish a unified gender organization headed by the new position of Under-Secretary-General and to amalgamate existing entities. The issue was largely promoted by the Scandinavian countries and the CANZ group. The developing countries viewed the issue as another way to impose more conditions on funding. India, a prominent member of both the G77 and NAM, recommended identifying the causes for the lack of follow-up on previous commitments on gender before undertaking a new round of reforms. This was supported by the United States, which added that there was no need for a new Under-SecretaryGeneral for gender issues. An intergovernmental gender task force was established to consider the issue further. The member states were quite satisfied with the ‘Delivering as One’ proposals. Briefings were given by representatives from the participating pilot states as well as by the representative of the UN in Rwanda. While stressing the importance of national ownership, the participating countries voiced their satisfaction with the process. In Tanzania, for instance, the project had brought together 17 different UN agencies, which had reduced costs and streamlined communications between the government and the UN. In Rwanda, the project had strengthened government leadership because it dealt with only one partner. The project also seemed to have fostered a spirit of

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commonality across the different UN agencies. Some smaller developing countries stressed that the initiative must not be seen as ‘one-size-fits-all’. Some of the larger developing countries also cautioned that consolidating UN programmes in their countries into a single voice might impinge upon their freedom to work with the partner of their choice. The discussion on ‘governance and institutional reform’ largely reflected a negative attitude towards the Panel’s recommendations, especially towards the suggested establishment of two new bodies under ECOSOC: the Sustainable Development Board and the Global Leaders Forum (L27). Both new bodies were considered to duplicate and further weaken ECOSOC. On the ‘environment’, disagreement continued among developed countries. The proposal to strengthen UNEP with improved funding and more authority, together with the idea of creating a new and stronger UN environment organization, received support notably from France, Switzerland, Mexico and the countries of the European Union. Others, especially Russia, disagreed and argued that similar reform proposals were already under consideration in other fora. The discussion on ‘human rights’ pointed to the linkage between human rights and development. Some developing countries, however, expressed concern that the mainstreaming of human rights in the UN development system could be used as a way to impose conditions on development assistance. Furthermore, the G77 and NAM noted that human rights are universal and monitoring should not be limited to developing countries only. On ‘funding’, there was general support with regard to the general concepts, such as improving the quality, quantity and predictability of funding and the balance between non-core and core funding. The need to review the UN’s funding mechanisms was emphasized, including the alignment of budget cycles and the establishment of a budgetary framework for the ‘Delivering as One’ pilots. The developing countries stressed that any savings from the coherence reform process should be reinvested in development. As for ‘business practices’, the proposal to entrust the CEB with their simplification and harmonization was supported by the EU, the United States, Japan and the CANZ group. The EU suggested including procurement reform in the list of issues to be examined. The G77 and NAM took a critical view, stating that the reform of business practices should only be discussed by the Fifth Committee and issues of monitoring and evaluation by the Committee for Programme and Co-ordination. They emphasized that the CEB was not a policy-making body. The consultation highlighted the continued divisiveness of some of the issues. Indeed, it was considered unlikely that progress could be made simultaneously within all of the eight clusters and it appeared that some issues were not likely to be discussed further. As a way forward, the two co-chairs proposed addressing the Panel recommendations with a ‘basket’ approach. Of the eight thematic categories that had previously been debated, several were selected for further consultations in 2008. In September 2008, the Assembly decided to place five issues on the agenda for the forthcoming 63rd session, namely ‘Delivering as One’, ‘Harmonization of Business Practices’, ‘Funding’, ‘Governance’ and ‘Gender Equality and the Empowerment of

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Women’.35 The G77 and NAM expressed concern that four themes proposed for discussion were primarily concerns of the developed states. Working under the premise that ‘nothing is agreed until everything is agreed’, the G77 and NAM supported the proposed approach on the understanding that there would be a single joint decision covering all issues. 5. Environment One issue that had not been included in the basket approach was the reform of the international environmental governance system. This reform was called for by the 2005 World Summit, and informal consultations had already begun in early 2006, prior to the coherence process. In June 2007, Ambassadors Claude Heller of Mexico and Peter Maurer of Switzerland, the co-chairs for this issue, submitted a two-tier option paper. One tier dealt with strengthening the current institutions for implementation. The second tier covered a broader transformation of the complex environment governance system into a UN Environment Organization (UNEO) with a longer-term perspective.36 This was captured in the notion of ‘ambitious incrementalism’. Specific proposals included the strengthening of UNEP in the areas of scientific assessment and monitoring of the state of the global environment, early warning and policy co-ordination. This was seen as enhancing UNEP’s ability to co-operate with UNDP, other UN entities and the World Bank. A major issue was the need for better co-operation between UNEP and the Multilateral Environmental Agreements (MEAs) and among the MEAs, for example through the rationalization of the various secretariats. Other issues included the enhancement of the Secretary-General’s leadership over the Environmental Management Group (EMG). Finally, the transformation of UNEP into a UNEO was addressed in the option paper. The paper proposed that, by the end of the 62nd session in September 2008, a decision should be reached on the terms of reference for formal negotiations on a broader transformation of the international environmental governance system. Discussion of the option paper revealed substantial disagreement between the member states. Nevertheless, the co-chairs drafted a proposal for a General Assembly resolution based on the feedback received. Following negotiations during May and June 2008, a revised draft version was presented in July 2008. Some proposals faced fundamental opposition, thus creating a serious divide. Negotiations continued until end-November. By that time, some observers believed that the United States and the G77 were deliberately delaying the efforts at consensus with their numerous suggestions for changes and deletions. Only the EU favoured maintaining momentum on the issue. Disagreement existed on essentially all major issues. The G77 advocated giving more weight to sustainable development, in particular to the eradication of poverty, over environmental protection. Other countries preferred to focus on environmental 35

See Document V: System-wide Coherence, UN General Assembly resolution 62/277, 15 September

2008. 36

For more detail see Appendix III: International Environment Governance.

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protection and adaptation as part of sustainable development. The proposed enlargement of UNEP’s mandate was controversial. Proposals to prepare a UNEP consolidated overview of research activities or a global environmental financial tracking mechanism were viewed with reluctance. This also applied to the strengthening of cooperation between UNEP and the MEAs with reference to the latter’s legal autonomy. One particularly contentious aspect was financing; the delegations were split between favouring the efficient use of funds and the need for additional allocations. The controversy extended to the idea of integrating the EMG in the framework of the CEB in order to ensure a co-ordinated approach by the UN system to sustainable development. Finally, many states argued that consideration of any broader transformation, such as establishing a new body, should be postponed until a future General Assembly session. In February 2009, after three years of consultations, the co-chairs announced that the competing interests of member states were too great to overcome and that further consultations in the immediate future would be unproductive.37 As a way forward, the input of environment ministers, who would meet at the UNEP Governing Council, could be sought. Moreover, an environment summit was planned for 2010 under the title ‘Rio+20’ (20 years after the Earth Summit in Rio and 10 years after the World Summit on Sustainable Development in Johannesburg). This would provide a new opportunity to consider the reform of the international environmental governance system. 6. Gender In May and June 2008, the status of the UN’s gender-related activities and programmes was reviewed. As a result of the earlier disagreements, it was understood that that there would be no immediate efforts to expedite an agreement. Instead, the Secretary-General submitted a preliminary concept note outlining the UN’s current capacity for gender-related activities. The paper avoided any discussion of potential institutional reforms and identified four critical gaps in the UN system that were hindering its capacity to achieve gender equality and women’s empowerment. First, decisions taken at UN headquarters were implemented at the country level only weakly and the channels for reporting feedback were inadequate. Second, the lack of a designated leader restricted the UN’s ability to take action. Third, the political will and support for gender equality from senior management in the UN system were inconsistent and inadequate. Fourth, financial resources for gender equality activities were inadequate and unpredictable. The European Union stated that a new UN entity on gender must address current gaps in the implementation of international commitments on gender, and the appointment of a dedicated high-level official was seen as an appropriate way to achieve those objectives. The EU nations encouraged the Secretary-General to present concrete proposals on institutional reforms. The G77 and NAM took a more cautious view. They encouraged a more analytical approach to scenarios for overcoming the four key chal37 Efforts to Reform International Environmental Governance Stall, Reform the UN note, New York, 19 March 2009.

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lenges China noted that the strengthening of existing mechanisms should be considered as an option and that there was no evidence that a new entity would solve current problems. India questioned the costs involved. In September 2008, member states decided to move toward discussions on institutional reform options for improved gender coherence and requested a second concept paper from the Secretary-General. The long-awaited paper, ‘Options for Strengthening Institutional Arrangements on Gender Equality and the Empowerment of Women’, was finally made available in March 2009. It provided details on four options. Option one involved no structural changes but increased funding for the four existing entities: the Office of the Special Adviser on Gender Issues and Advancement of Women (OSAGI), the Division for the Advancement of Women (DAW), the UN Development Fund for Women (UNIFEM), and the International Institute for Research and Training for the Advancement of Women (INSTRAW). Under Option two, those entities would be consolidated into a single department but without a field presence. Option three envisaged the creation of a fund or programme with a field presence, but with limited links between normative and operational work. The preferred option four envisaged a composite model, combining aspects of both a department and a fund/programme. This option was considered to have the greatest potential to create synergy between operational, normative and policy functions. Most resources would be applied to support a countrylevel presence. Six UN regional hub locations were proposed as part of the composite model: Bangkok, Beirut, Bratislava, Dakar, Johannesburg, and Panama City. The new entity would have the maximum autonomy for financing, procurement and recruitment. Consultation on the second option paper took place in April and May 2009, led by the two new co-chairs, Ambassador Kaire Mbuende of Namibia and Ambassador Juan Antonio Yáñez-Barnuevo of Spain. There was near-consensus for pursuing a composite entity. A call for immediate action was expressed by the European Union, Nordic Group, CANZ, Mexico, Chile and South Korea. India, Japan, Colombia and Pakistan expressed some support for strengthening existing bodies. However, the G77, NAM and Japan argued that the gender paper should not be dealt with ahead of other aspects of system-wide coherence, including governance and funding. Following the request of a number of delegations for additional information on staffing and budgeting, the secretariat provided a further document on the functions and structure of the new entity, including organization charts.38 With regard to governance, it was suggested that either a new Executive Board should be established or an existing one should be used such as the UNDP/UNFPA or UNICEF Executive Board. Staffing would amount to 144 people for a department, 1,041 for a fund/programme and 1,049 for a composite entity. Annual staffing costs would amount to USD 24 million for the department, USD 124 million for the fund/programme and USD 125 million for the composite. This compared to the 278 staff and annual budget of USD 45 million for the current four gender-specific entities. The paper concluded that, after

38 UN System Offers Further Details on Strengthening the Gender Architecture, Reform the UN note, New York, 19 June 2009.

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almost three years of intensive consultations, there was a compelling need to take decisive action without further delay. The composite gender model had also received strong support from the NGO community, including from the civil society campaign for Gender Equality Architecture Reform (GEAR), an international coalition of over 300 women’s organizations and human rights groups in more than 50 countries. GEAR called for the new entity to be headed by an Under-Secretary-General and to have a universal field presence, resources of USD 1 billion annually at a minimum, and a mandate to promote and hold the UN system accountable for gender mainstreaming and meaningful involvement of civil society. 7. Funding In May 2009, member states considered a Discussion Note by the Secretary-General on Strengthening the System-wide Funding Architecture of Operational Activities of the UN for Development. The Note summarized the gaps and weaknesses of the UN funding architecture, including volatile resource flows, long-term decline in the share of core resources of overall contributions, fragmentation of non-core funding, and uneven burden-sharing among donors. Specifically, the Note proposed to overcome the fragmented nature of the funding architecture by launching a high-level policy dialogue with member states to renew their commitment to funding volumes. Donor partners should provide at least 50 per cent of system-wide contributions as untied core resources, and revise budgetary laws and practices to allow for multi-year core funding commitments. Moreover, donors should channel a minimum of 50 per cent of noncore resources to thematic funds linked to strategic plans. Many states voiced concern over the multiple references in the note to the ‘Delivering as One’ project, the outcomes of which had not been finalized. They noted that the recommendations appeared to challenge the importance of non-core as compared to core funding. Indeed, Canada asked for an explanation of a basic distinction between the two types of contributions. Along the same line, many member states raised the question of the ‘quality over quantity’ of contributions. Many member states called on the participants of the meeting to be ‘realistic’ and acknowledge the difficulty of increasing contributions by the donor counties due to the financial crisis. Finally, the European Union, United States, Norway and CANZ argued that funding and governance should be discussed together. 8. Governance In April 2009, member states took up in informal consultations a Discussion Note on the governance of the UN’s development activities. The Note identified a range of gaps and weaknesses in the governance system and reviewed recent developments, in particular the creation of ‘Delivering as One’ pilot projects. It was argued that, despite periodic reviews by the General Assembly, reforms of ECOSOC, and making interagency bodies more inclusive, the present system of governance did not ensure consistency and co-ordination of policies across the UN system. A number of recom-

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mendations were put forward, including the creation of a central repository of information on UN operational activities for development; the merging of ECOSOC’s Operational Activities Segment with its Co-ordination Segment; the creation of an Advisory Group composed of ECOSOC members; consultations between ECOSOC and inter-agency mechanisms; the strengthening of relationships between the Bretton Woods Institutions and the UN system; the creation of a system-wide evaluation unit; and the strengthening of the Joint Inspection Unit. The G77 and NAM found it positive that the Note implicitly discouraged some earlier recommendations for new intergovernmental bodies and structures which were seen as creating duplication and adding complexity and incoherence to intergovernmental governance. The general call to strengthen ECOSOC was welcomed, but this should not result in questioning the guiding role of the General Assembly in operational activities. Concern was expressed about the proposal to merge the Operational Activities and Co-ordination segments due to their different natures. It was argued that the proposed ECOSOC advisory group needed to be critically evaluated by examining the implications of limiting the participation of the majority of ECOSOC members in the legislative process. With regard to inter-agency mechanisms such as the CEB and UNDG, it was considered imperative to establish greater accountability to the intergovernmental bodies in charge of operational activities. The creation of a central repository of information on UN operational activities should not result in monitoring recipient countries and the politicization of development assistance. Many states also expressed a desire to avoid duplications, referring primarily to the proposed new system-wide evaluation unit. 9. Business Practices Work on business operations was carried out by the UNDG at the pilot project level and HLCM at the headquarters level. It was agreed that the eight ‘Delivering as One’ pilot countries, supported by the UNDG, would each take a lead in specific areas of business operations to explore what could be done to achieve greater simplification and harmonization. Some progress was made in 2008 in the areas of procurement, information and communications technology and human resources. At the spring 2007 session, CEB endorsed an HLCM proposal to develop a plan of action for the harmonization of business practices in the UN system through an interagency steering group. The Steering Group was led by the HLCM vice-chair and comprised the chairs of the HLCM networks, the HLCM representatives of UNDP and UNICEF, the Director of the CEB secretariat and the Secretary of HLCM. The focus was on emerging needs at the country level that required harmonization at the central level. Its scope was limited to issues within the purview of Executive Heads and included projects ready for implementation, comparative analyses and feasibility studies. The measures were expected to increase coherence in the working modalities and reduce costs in the medium term. The goal was to have some of the projects completed in as little as nine months, with the most complex ones taking two to three years. A number of key areas were addressed, including human resources, financial and budget, information technology, and procurement.

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In the area of human resources, it was proposed that a comparative review of the staff regulations and rules of the organizations of the UN common system be carried out. This was expected to lead to a progressive harmonization of performance evaluation systems, employment arrangements and management practices. The focus was on improving staff mobility, reward systems, investment in training and career development, including the establishment of a senior management leadership programme. On financial and budget issues, a training project was proposed to support and ensure consistent implementation of the new International Public Sector Accounting Standards (IPSAS) across the UN system. Further study would analyse the impact of IPSAS on budgeting practices and develop a capital budgeting solution for the UN system. Other initiatives included the establishment of common cost recovery policies across the UN system and the enhancement of the CEB’s UN system-wide financial statistics database. Finally, a feasibility study was proposed on putting in place a common treasury service. Most proposals on information technology addressed knowledge sharing within three Enterprise Resource Planning (ERP) platforms (Oracle, Peoplesoft and SAP). This included projects to harmonize ERP operational processes, the development of regional inter-agency shared service centres, the development of a UN system portal, the development of common costing approaches for ICT services, the consolidation of UN data centres, harmonizing ICT business practices through the use of international standards and a feasibility study for a UN system directory. On procurement, projects included the development of a common framework for dealing with suspect vendors, supporting field office procurement and increasing access for suppliers from developing countries. The plan largely represented ‘old wine in new glasses’.39 Some of the proposed projects had previously been part of the programme of work of HLCM and its networks or part of UN reform initiatives and did not necessarily constitute new efforts under the coherence umbrella. The overall resource requirements for the HLCM plan were estimated at a level of USD 21.7 million, expected to be financed through voluntary contributions from donor countries. The funding covered feasibility studies and pilot work. Once they were complete, follow-up would be mainstreamed into the work of the UN system organization. For each project, there was a lead agency supported by a working group of interested organizations. Central oversight for the overall plan was with the CEB secretariat, including central accountability for the financial support provided. The plan of action was approved by HLCM in September 2007 and endorsed by CEB in April 2008. In June 2008, the General Assembly was briefed on the plan in the context of the informal consultations on system-wide coherence. Member states had generally expressed support for the plan of action, but underscored the importance of respecting existing mandates and the division of labour among the various UN organs with respect to ongoing management reforms. The plan was circulated to potential donors for funding in October 2008 and, given the support that member states had expressed for the initiative, a positive response was expected. A contribution was re39 Plan of Action for the Harmonization of Business Practices in the United Nations System, Funding Proposal, CEB document 2008/HLCM/10, 23 September 2008.

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ceived from New Zealand in late December 2008 amounting to USD 270,000, to fund a project to develop a common framework to deal with suspect vendors. Due to the lack of voluntary funding, some implementation begun in early 2009 on the basis of internal resources earmarked by UN organizations. 10. Delivering as One: Implementation40 In early 2007, the UNDG was mandated to support the eight ‘Delivering as One’ pilot countries. A Programme and Management Co-ordination Group was established which brought together senior staff of UNDG agencies to maintain central oversight and guidance for the ‘Delivering as One’ pilot projects.41 The Group held its first meeting in March 2007 and identified a number of issues for further discussion, including the role and function of the RC and the UN Country Teams (UNCT), respect for the sectoral competences of specialized agencies, the lead-agency concept in emergency situations, the role of regional structures, the integration of non-resident agencies, and the integration of competences and services offered by UN specialized agencies with UN programmes and funds. In addition, the Assistant Secretary-General and Assistant Deputy General Committee of the UNDG provided a framework for reaching agreement on ‘red-line’ issues. The UNDG also undertook a review of the composition of existing inter-agency working groups to ensure that all organizations could participate in the new initiative. The UNDG secretariat, UN-DOCO, provided support for the oversight bodies and the pilot countries. In 2007, for example, UN-DOCO revised the Common Country Assessment – UNDAF Guidelines taking into account the ‘Delivering as One’ project requirements. UN-DOCO progressively captured best practices from the field through consultations with RCs. One of the key ways in which the system supported the pilots was through technical missions to pilot countries and workshops. In 2007, more than 40 support missions took place and a number of retreats or workshops were conducted to provide information on key concepts. In May 2007, guidance for pilot projects was largely moved from Headquarters to the regional offices. Each region was to ensure greater inter-agency coherence and be accountable for reporting on progress in the pilot projects. At the country level, a number of new institutional arrangements were established. A Joint Steering Committee provided for interaction among the government, RCs and UNCT. Those local groups were to develop the design and implementation modalities. The Programme Co-ordination Groups (PCGs), referred to as Thematic Working Groups in some countries, reported to the UNCT on issues relating to the implementation and development of the ‘One Programme’. The Operations Management Team sought to harmonize operational processes. With support from UN-DOCO and a consultancy firm, the UNCTs engaged in a process of change management. 40

ture.

For a detailed description of the UN development system, see Appendix IV: Evolving Aid Architec-

41 The Committee comprised ten members: four from the funds and programmes which formed the UNDG Executive Committee (UNDP, UNICEF, UNFPA, WFP); five from specialized agencies (UNESCO, FAO, WHO, UNHCR, ILO); and one from a non-resident agency (UNEP).

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The main challenge for the implementation of the pilot projects was setting strategic priorities that corresponded to the country’s own priorities and pooling resources to respond to those national priorities. In order to overcome the fragmentation of the UN system, the RC was given additional authority to lead and hold the UNCTs accountable. The UNDAF approach was to be replaced by the more ambitious ‘One Programme’, which aimed for a higher degree of coherence. UNDAF basically described the collective response of the UNCTs to the priorities in the national development framework without clearly indicating how its implementation would be funded. This was done under the UNDAF by joint programmes which were more tightly defined and involved two or more UN organizations and national partners as well as a common work plan and related budget. The UNDAF budget arrangement was to be replaced under the ‘One Programme’ by one unified budget which would merge the resources of all UN entities operating in a given country. Since only some UN entities were able to commit their resources to a common country-specific budget, the concept was transformed into a softer goal by establishing ‘One budgetary framework’, which allowed for targeted resource mobilization. This preserved the financial autonomy of each UN entity involved in the country plan. In addition, local coherence funds, the ‘One Fund’, were established, intended to finance the unfunded requirements of the ‘One Programme’. During 2008, the pilot projects were further elaborated through updated job descriptions for RCs, a guidance note on the working relations between the RC and UNCT, and the definition of a UNCT dispute resolution mechanism. In late 2008, the UNDG approved the management and accountability framework for the UN development and RC system, including a functional firewall for the RC system. By the end of 2008, all pilot projects had either initiated their One Programmes or had completed their first year of implementation. Implementation had got off to a rocky start. Experience from the pilot project indicated that the programme lacked clear priorities at first and the process was very much a case of learning by doing. One of the first obstacles the process encountered was the challenge of changing the mindset of the different UN agencies, which seemed to resist centralization. With time, the UN agencies’ efforts began to coalesce. In January 2009, the UNDG agreed to expand the lessons learned from the pilot projects to all country offices. A UNDG toolkit was assembled that incorporates guidance, lessons and experiences from both pilot and non-pilot countries to promote more integrated programming. UNDAF roll-out countries that voluntarily applied the UNDG toolkit were considered eligible for the expanded ‘Delivering as One’ funding window for the achievement of the MDGs. As the pilot projects progressed, there were increased indications of alignment with the Paris Declaration; in fact, several pilot countries scored above the 2008 targets set by the UN in relation to the Paris Declaration indicators.

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11. Delivering as One: Consultations Following their launch in early 2007, the ‘Delivering as One’ pilot projects had gained momentum. In February 2008, the General Assembly, led by the new co-chairs, ambassadors John Kavanagh of Ireland and Augustine Mahiga of Tanzania, took stock of recent developments. Deputy Secretary-General Asha-Rose Migiro presented a stocktaking report on how the pilot projects were functioning. The eight pilot governments had been asked for their initial assessment, which was complemented with feedback from UN country teams and UN agencies. Overall, the pilot countries’ experience was positive. Increased government leadership and ownership were seen to have led to a greater alignment between UN and government development-related priorities. Moreover, the UN agencies had demonstrated increased participation and joint programming. The report identified a number of problems, including the difficulty of balancing the need for greater inclusiveness with a greater strategic focus, and the challenge of fitting the ‘Delivering as One’ initiative into ongoing government and UNDAF programme cycles. Other problems related to the slow speed of the reform process at UN headquarters, the heavy workload, high start-up costs and unrealistically high expectations for funding in pilot countries as well as confusion about the role of the RC. The consultations indicated an increasing appreciation of the ‘Delivering as One’ pilot projects. The larger donor groups – the European Union, Japan and CANZ – focused on increased efficiency and accountability. The EU emphasized that support for the coherence process was based on the Paris Declaration on Aid Effectiveness, which captured the consensus of the donor community and partner countries on how development assistance can more effectively support partner countries’ development plans. The G77 and NAM took a more critical view. They recalled the previous concerns that ‘Delivering as One’ should be entirely voluntary, that ‘one size does not fit all’, and that the process should not restrict national sovereignty or introduce new conditions on human rights and gender issues. With regard to the latter, additional information was requested on the RCs’ prerogatives vis-à-vis national governments. The G77 and NAM supported an ‘integrated process’ involving not only ‘Delivering as One’ but also funding, development and governance issues. They emphasized that the pilot projects should be systematically evaluated in 2009, after which a definite conclusion could be reached. Until then, there should be no systemic expansion in the number of pilot projects. Despite the critical comments, the ‘Developing as One’ projects were growing in popularity; some 30 small and medium-sized states were interested in joining as pilot countries. This created a vocal group within the G77 and NAM in support of the initiative. Many donor and pilot countries supported this ‘bottom-up’ development, which was viewed as avoiding the politicization associated with New York–based intergovernmental consultations. In addition, some warnings were expressed. The Deputy Secretary-General suggested that if the UN failed to endorse the ‘Delivering as One’ pilot project, the cost would need to be borne by the entire UN system. There were reported concerns that G77 and NAM member states felt pressured to endorse the ‘Developing as One’ pilots prematurely before the evaluations had been completed.

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A widely viewed sign of support for the ‘Delivering as One’ approach was approval of the 2007 triennial comprehensive policy review (TCPR) resolution by the General Assembly at the end of 2007.42 The TCPR provides policy guidance to the UN operational system for development and was seen as also providing a legislative framework for the ‘Delivering as One’ pilot projects. The resolution supported a strong focus on national ownership and flexibility, with no ‘one size fits all’ approach. The resolution noted that UN activities were moving towards greater country-level programme coherence and fostering teamwork among the UN system organizations. Increased funding was as seen as key to the success of the UN operational activities. In order to address the competition for resources among UN organizations and the resulting fragmentation, it was suggested that discussions of a central funding modality be initiated. It was emphasized that the RC system was owned by the UN development system as a whole and that the RCs should report to national authorities on progress made against the results agreed on in UNDAF. The resolution encouraged the rationalization of UN country presence through common premises, co-location, and common support services in order to reduce overhead costs for the UN system and transaction costs for national governments. The resolution also encouraged the UN system to increase the use of national support systems, including procurement, security, information technology, travel, banking, reporting and evaluation. Finally, the Assembly asked the Secretary-General to report to ECOSOC in July 2008 on an appropriate management process for the implementation of the resolution. The mandate for such a strong follow-up process was unique and gave the resolution normative weight. In parallel with the intergovernmental process, various consultations had been carried out. Notable events included the high-level dialogue on system-wide coherence and the ‘Delivering as One’ organized by UNIDO in Vienna in March 2008 and a seminar on ‘Delivering as One’ for representatives of pilot countries hosted by the government of Mozambique in Maputo in May 2008. The UNIDO meeting was attended by the UN Deputy Secretary-General, the two Co-Chairs of the UN Consultations on System-wide Coherence, and representatives from member states, international organizations and donors. Whereas some participants argued that much was at stake and that failure to deliver in the coherence process would risk marginalizing the UN family, several government and UN system representatives now considered the process irreversible. The role of the RCs and the UNDP was one of the key issues. It was suggested that the UNDP would need to demonstrate more visibly its commitment to withdraw from areas that fell within the mandates of the specialized agencies. The RCs needed proper incentives to work for the whole UN system. In order to separate the co-ordinating function of the RC from the operational activities of the UNDP, a ‘firewall’ was to be established, including the appointment of separate UNDP Country Directors to delink this responsibility from the RCs. The accountability of RCs to the government should be strengthened. It was argued that headquarters would need to give their representatives on the UNCTs more flexibility.

42 Triennial Comprehensive Policy Review of Operational Activities for Development of the United Nations System, UN General Assembly resolution A/RES/62/208, 19 December 2007.

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A number of other issues were raised. It was suggested that the eight pilot projects were not necessarily representative of all the work at the country level. Moreover, UNDAF often did not reflect the totality of the contribution made by the UN system. There was, therefore, a need to sensitize RCs to the services that non-resident agencies offered. The harmonization of business practices was considered a major problem for coherence, but progress had been limited thus far. Specialized agencies were urged to abandon their project approach for a programme approach. There were questions on how to channel earmarked funding through the ‘One Plan’. The ‘One Fund’, which provided joint funding for local programming, was considered insufficient. Finally, a key challenge was maintaining a continuing level of commitment by host governments to ‘Delivering as One’ pilot projects. A conflict was identified between national ownership and UN harmonization. Other speakers emphasized the need to make the new co-ordination processes less time-consuming and less costly. There was some criticism of ‘Delivering as One’ by the specialized agencies. For instance, the WHO representative argued that the agency was being asked to stop being a specialized agency. Although this was seen as acceptable for some development issues, it could not apply to issues of global health or governance. 12. Delivering as One: Process Evaluation In order to consolidate support for the ‘Delivering as One’ initiative, there was a need to show real results from the pilots. In April 2007, the CEB endorsed the establishment of an evaluation process for the pilot projects. In the absence of a system-wide evaluation mechanism, UNDG mandated the inter-agency network the UN Evaluation Group (UNEG) to begin work urgently on the development of evaluability criteria and baselines for the evaluation. UNEG created an ad hoc Management Group to address the request, composed of the heads of evaluation of the UN system,43 and the scope and process for the evaluation was endorsed by the CEB in October 2007. A progress report was made available to the HLCP in March 2008 and to member states in June 2008. In September 2008, UNEG presented its synthesis report.44 The report was considered as process evaluation feedback which could be followed by an evaluation of the results of the pilot experience sometime in late 2011. The feedback from the synthesis report was mixed. It was noted that national ownership and leadership in the ‘Delivering as One’ process were strong and that of the UN system programmes were aligned with national strategies. However, it was also emphasized that these trends had already manifested themselves before the start of the ‘Delivering as One’ initiative and might just have been reinforced by this process. This was the case for UNDAF, which had supported government efforts to maintain a strategic focus, articulated the UN system contributions for resident and non-resident agencies and co-ordinated external aid to national plans. For example, in Albania the 43 Heads of evaluation from the following entities participated: FAO, IFAD, ILO, ITC, UNCTAD, UNDP, UN Department of Economic and Social Affairs (UNDESA), United Nations Economic Commission for Africa (UNECA), UNEP, UNESCO, UNFPA, UNHCR, UNICEF, UN-HABITAT, UNIFEM, UNODC, WFP and WHO. 44 Evaluation of One UN Pilots, CEB document 2008/HLCP-XVI/CRP.2, 15 September 2008.

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UN contribution was aligned with the National Strategy for Development and Integration 2007–2013 and the Stabilization and Association Agreement of 2006 with the European Union. In Cape Verde, Mozambique, Pakistan, Rwanda and Tanzania, UNDAF was aligned with the countries’ own poverty reduction strategies. This was not necessarily better articulated in the ‘One Programme’ approach. The new element was the creation of a budgetary framework for the ‘One Programme’ which usually exceeded those of the UNDAF and carried the promise of a substantial increase in financial resources. In most cases, resources provided by the UN system did not exceed 50 per cent of total funding requirements for the ‘One Programme’. The funding gap expressed through the ‘One Fund’ was then presented to donors. This partly explained the attraction of ‘Delivering as One’ for the pilot countries. It was noted that the pilot projects had enhanced the pilot countries’ access to the UN system, including non-resident agencies. Some line ministries expressed concern that centralization would sever their traditional links to the specialized agencies that provided budget support. There was increasing awareness that operational activities should also continue outside ‘Delivering as One’ in order to allow access to funding, as in the case of the WHO, which is not principally a development agency. With regard to implementation, the report noted that the pilot projects had largely been a ‘journey without maps’. The support provided by the UNDG and UN-DOCO had not been guided by a comprehensive conceptual framework. Rather, some of the challenges such as the establishment of the ‘One Budgetary Framework’, ‘One Fund’, and the code of conduct for UNCTs had been addressed ad hoc by a great number of support missions, meetings and workshops. The RCs and UNCTs all faced similar challenges caused by the centralized decision-making in several UN organizations, the rigidity of rules and regulations, and the diverse business practices among UN organizations. The latter problem was viewed as resulting in increased transaction costs in the implementation of joint programmes, the disbursement of funds, the creation of common services, and the increased use of national systems. There had been limited progress in the simplification and harmonization of business practices, which largely depended on initiatives at the Headquarters level, and there was not even any clear identification of issues that needed to be resolved. Indeed, some observers argued that it should not be assumed that the pilot projects had resulted in an overall reduction of transaction costs. A satisfactory delineation of responsibilities (‘firewall’) between the functions of UN RCs and UNDP Resident Representatives had been established. Although these functions were initially performed by the same person, the potential conflict of interest had been addressed with the establishment of separate UNDP country director positions. There was, however, still a need to strengthen the authority of the RCs over members of the UNCT, who remained primarily accountable to their own organizations. Since the RCs had no jurisdiction over agency resources and staff, their authority as ‘One Leader’ was severely limited. The pilot project initiative regarding common premises was rooted in the joint office model mandated in the 2004 TCPR resolution. Most pilot countries had not made much progress in co-locating all resident agencies in common premises. This had been achieved only in Cape Verde, where the ‘One UN House’ was created in 2006, well before the pilot project started. Combined physical location sometimes increased the

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administrative costs of programmes. If the host government had previously provided the office space for a specific programme, the combining of office spaces pushed the UN into the commercial real estate market. Finally, the use of national public and private systems for support services was still relatively underdeveloped. In June 2008 during the informal briefing on ‘Delivering as One’, the G77 and NAM claimed that the evaluation lacked independence and tended to support the less critical position of the secretariat. An independent and impartial evaluation was considered essential for the consideration of the ‘Delivering as One’ initiative. The two groups therefore demanded that the evaluation criteria and methodology should be intergovernmentally agreed on as part of the independent evaluation requested by the General Assembly in December 2007 under the 2007 TCPR resolution on the triennial review of operational activities for development. In response to the objection of the G77 and NAM, the next phase of the CEB evaluation was suspended pending further information concerning the independent evaluation. 13. Delivering as One: 2008 Stocktaking Report Although the UNEG evaluation was discontinued, the eight ‘Delivering as One’ pilot projects prepared their second round of stocktaking and the 2008 synthesis report was presented in June 2009.45 The report provided an assessment by the eight pilot governments, complemented with feedback from UN country teams and UN agencies, as had been the case in 2007. The 2008 stocktaking reports reconfirmed previous observations and elaborated in more detail on the continuing shortcomings and possible structural barriers. A number of pilot countries reported an increase in national ownership, with the governments increasingly guiding UN agencies to align external assistance with national priorities. Participation by civil society groups was increasing. Many pilot country representatives reported that the ‘One Budgetary Framework’ had improved the transparency of the UN’s work in their countries. Inter-agency collaboration had been enhanced, which in turn facilitated greater coherence in monitoring and financial reporting obligations. A shift was identified from a focus on processes in 2007 to working on the implementation of results in 2008. Progress had come, however, at an increased shortterm cost to all UN agencies. ‘Delivering as One’ had introduced a number of new planning tools at the country level without necessarily replacing existing ones. ‘One Programme’ was developed essentially in parallel with and as a duplication of the existing UNDAF processes. The multiple planning mechanisms were overly complicated and had no relevance to the day-to-day work of the UN organizations. Contrary to the intentions of the UN reform, UN organizations were now reporting several times a year and the wide variety of reporting and planning formats required by agency headquarters did not facilitate the easy transfer of information into common reporting formats. This added an extra layer of reporting, which was time-consuming for government counterparts, UN staff and 45 Delivering as One 2008 Stocktaking Synthesis Report, Joint Reports by Governments and UN Country Teams, UNDG report, 2009.

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other stakeholders. The need to simplify the programming cycle and reduce the number of required documents was a key conclusion of the stocktaking report. Recommendations included the development of a single UN Development Assistance Strategy that would integrate key components of the UNDAF and ‘One Programme’ and the preparation of a single year-end report for all UN activities in a country. With regard to the new funding arrangement, resource mobilization remained a major concern. The mechanism of ‘One Fund’ at the country level supported by unearmarked contributions was a central element of the pilot projects. Donors showed a lack of interest, however, and it was not clear whether the new mechanism had made a significant impact. Due to the limited funding, the UNCTs allow the earmarking of contributions for joint programmes and thematic areas. As a result, programme development was increasingly driven by resources rather than strategic objectives, as initially envisaged under the ‘One Fund’. With regard to UN-government interactions, programme implementation was not synchronized with the government budget cycle. Inter-sectoral and inter-ministerial co-ordination and linkages were an area of concern, as many line ministries were not meaningfully involved in ‘Delivering as One’. The UN’s need to reinforce leadership at the central level ran counter to the trend towards decentralization of public administration in some developing countries. At the management level, the lack of harmonization of business practices between different organizations remained a major obstacle to UNCT cohesiveness. Diverse and fragmented policies existed in the areas relating to procurement, information and communication technology, finance and human resources. For example, with regard to human resources, the agencies had different grading policies (similar functions with different ranking), promotion guidelines, retrenchment policies, contract types, entitlements, recruitment processes, reporting lines, grievance resolution processes, approaches to working hours and work-life balance issues. The need for progress was evident and it was seen to rely heavily upon action at the inter-agency headquarters level. The assessment did not provide for an estimate of additional costs or potential savings resulting from the ‘Delivering as One’ initiative. The UN struggled to establish a solid methodology. It was argued that the pilot projects have resulted in a decrease in transaction costs and an increase in internal co-ordination costs. Transaction costs decreased along with the consultative burden of working with government counterparts and UN donors. This included reductions in the number of meetings and more joint missions and joint analytical work, which were partly offset by an increase in missions from non-resident agencies that wanted to observe progress. Other cost reductions included co-ordinated resource mobilization and lower operating costs as a result of establishing a Joint Office, as the example of Cape Verde demonstrated. Increased coordination costs included the added workload for staff who contributed to inter-agency working groups, in addition to their engagement with an individual UN agency. This related in particular to the work of the Programme Co-ordination Groups, which required increased staff time beyond the typical UNDAF Theme Groups. Staff surveys indicated that the additional workload related to the ‘Delivering as One’ project was unsustainable.

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Complying with the Paris Declaration on aid effectiveness was seen as an integral part of the reforms to enhance system-wide coherence. Attempts to do this involved better aligning UNDAF to support national priorities and strengthening ownership. The harmonization effort in the area of business practices was seen as increasing effectiveness in working with partners. Strengthening national capacities to monitor the impact of aid and report progress towards the MDGs was considered to support the managing for results process. It was also intended to increase the use of national systems in the areas of procurement, accounting, monitoring and evaluation. However, this was not being achieved. Implementation still relied on heavy UN management and reporting requirements, which in most cases included components of UN direct execution. The 2008 stocktaking report pointed to some fundamental issues. The UN change process at the country level was governed by a collective of equals assembled in the UNCT, with consensus at the core of the decision-making process. Although the RC facilitated the process, it was the UNCT which took the management decisions. This made the decision-making process lengthy and cumbersome and created an accountability issue. The challenge grows exponentially when even the UNCT members are not fully empowered to take decisions and depend on their respective Headquarters’ agreement. The RCs’ lack of empowerment made managing and sustaining change extremely difficult. 14. General Assembly Consultations on System-Wide Coherence, June and September 2009 In June 2009, the Working Group on System-wide Coherence met in an informal session of the General Assembly to take stock of recent discussions and recommend further action. The Secretary-General had previously issued three Discussion Notes on Governance of Development Work, Funding System for Development, and Gender Architecture.46 Member states also received a briefing from UN representatives on the ‘Delivering as One’ initiative. On funding, the Secretary-General noted that member states had acknowledged the fragmentation and weaknesses in the current system. It was suggested that donor countries renew their commitment to the quantity and quality of resource flows and that high-level meetings should be convened on how to enhance the system’s assistance to developing countries. On governance, the Secretary-General suggested furthering common country programming; strengthening the General Assembly’s policy guidance by improving the comprehensive policy review; working within ECOSOC and strengthening its oversight and co-ordination roles; establishing an independent system-wide evaluation unit; and setting up a central repository of information on UN operational activities for development. Regarding gender architecture, the vast majority of member states had reportedly expressed support for strengthening the gender architecture by creating a ‘composite entity’. The Secretary-General urged the member 46 Note on Gender Architecture, 5 March 2009; Note on Governance of Development Work, 16 April 2009; and Note on Funding System for Development, 5 May 2009, UN Secretariat reports, New York.

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states to muster the political will to create the composite entity and to fund it properly. On ‘Delivering as One’, the Secretary-General suggested that the increased alignment of the UN’s development co-operation with national development priorities was a successful outcome. Funding was seen as the main challenge. Other issues included the fragmentation within the UN family, the harmonization of business practices, the importance of reduced transaction costs, the need to move to a simplified reporting system, and the involvement of non-resident agencies. By early 2010, the pilot stage would be completed. In order to draw clear conclusions and articulate a framework for future co-operation, an overall evaluation would need to be conducted. Many member states called to move towards a decision, especially in the area of gender architecture; the requested measures included establishing a new composite entity and the evaluation of the ‘Delivering as One pilot’ initiative. The G77 and NAM, however, emphasized their preference for an integrated approach and rejected any artificial deadlines in the process. Following the informal June 2009 meeting, the two co-Chairs, Ambassador Kaire Mbuende of Namibia and Ambassador Juan Antonio Yáñez-Barnuevo of Spain, held bilateral meetings with regional groups and individual delegations. These consultations were followed by a plenary meeting with member states in September 2009 that approved the resolution on System-wide Coherence.47 The Assembly managed to move forward essentially only on gender architecture. Member states agreed to consolidate all four women-specific entities48 into a composite entity. The new entity would be supported by a substantial budget increase, over and above the resources of the previous four entities combined. The budget is to be funded by voluntary contributions, likely from those donor countries that strongly supported the reform. Funding would go primarily to establishing regional offices; the decision was appreciated by the developing countries that were critical of the reform. The anticipated budget growth facilitated the support for structural consolidation in the four separate secretariats. The additional funding would support the establishment of a new Under-Secretary-General position and provide career opportunities for staff. Finally, political concern with regard to a strengthened gender entity would be accommodated through a new governing arrangement that provided for tied policy control by the more critical member states. The Secretary-General was asked to submit a comprehensive proposal concerning the mission statement of the composite entity, the organizational arrangements, including an organizational chart, the funding arrangement, and the composition of the executive board to oversee the operational activities of the new entity. Japan and Russia expressed some caution and conveyed a need to avoid unnecessary bloating of the new entity. Few of the other issues were approved. On ‘Delivering as One’, the Assembly asked the Secretary-General to urgently undertake an independent evaluation and to inform the Assembly of the modalities and terms of reference of that evaluation at its 47 See Document VII: System-Wide Coherence, UN General Assembly resolution A/RES/63/311, 14 September 2009. 48 The Office of the Special Adviser on Gender Issues and the Advancement of Women, the Division for the Advancement of Women, the United Nations Development Fund for Women and the United Nations International Research and Training Institute for the Advancement of Women.

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upcoming session.49 Concerning harmonization of business practices, the SecretaryGeneral was asked to continue his efforts through the CEB. On governance, the Assembly cautioned about the establishment of new mechanisms and emphasized the need to focus on enhancing existing intergovernmental bodies. In addition, the Secretary-General was to propose modalities for the establishment of an independent system-wide evaluation mechanism. On funding, the Assembly requested that the Secretary-General create a central repository of information on UN operational activities for development. E. INTER-AGENCY CONSULTATIONS: CEB PRIORITY THEMES, 2006 TO 2009 Deliberations on UN system-wide coherence had led to the realization that the CEB could potentially be used as a co-ordinating mechanism for system-wide action.50 As the highest-level expression of system-wide coherence, the CEB was considered to be well placed to play a catalytic role. This would be a marked change from the CEB’s more limited role in the past, which was essentially seen as an opportunity for the UN executive heads to exchange views and to get to know each other, to issue joint statements on programmatic and management aspects of the UN system and to focus on the preparation of major international meetings.51 As early as the autumn of 2006, the CEB discussed its functioning in view of the anticipated recommendation by the High-level Panel on System-wide Coherence. A review was carried out by the Director-General of the ILO, Juan Somavía, and the Director-General of the WTO, Pascal Lamy. As a result, in 2008 UNDG was integrated into the CEB structure as the third pillar, in addition to HLCP and HLCM, and development themes became more prominent in the CEB discussions.52 As part of the UN system-wide coherence programme, the CEB took up issues such as the ‘Delivering as 49

States Discuss Evaluation of ‘Delivering as One’, Reform the UN note, New York, 29 July 2009. For a detailed description of the CEB system, see Appendix II: UN Inter-Agency Co-ordination Mechanisms and for a description of UN system organizations, see Appendix I: UN System Organization and Participation in Inter-Agency Co-ordination. 51 In recent years, programmatic issues covered, for example, partnership between UNDG and the World Bank in crisis and post-crisis countries; aid for trade; peacebuilding; mainstreaming disaster risk reduction; rights of persons with disabilities; trade capacity-building; employment and decent work; Brussels Programme of Action for the Least Developed Countries; UN Convention against Corruption; curbing transnational organized crime; gender mainstreaming; inter-agency collaboration against hunger; employment; migration; World Summit on the Information Society; bridging the digital divide; Doha Development Agenda and 2005 World Trade Organization Ministerial Conference; review of the implementation of the 2000 Millennium Declaration; follow-up on the 2000 Millennium Summit. Management issues included the security and safety of UN staff; introduction of International Public Sector Accounting Standards (IPSAS); knowledge sharing; procurement; climate-neutral UN; triennial comprehensive policy review; confidentiality of internal audit reports; Senior Management Network; results-based management; UN System Staff College; UN system-wide evaluation mechanism; human resources management; financial resource management; UN system oversight; co-operation with inter-agency bodies such as the ICSC, JIU and internal audit services of the UN system. 52 This included, for example, monitoring international agreements such as the Millennium Development Goals, Africa’s development needs, financing for development, preparation of the 2008 High-level Forum on Aid Effectiveness held in Accra, and the 2008 Follow-up International Conference on Financing for Development to Review the Implementation of the Monterrey Consensus held in Doha. 50

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One’ pilot projects and the harmonization of business. In parallel, the CEB had been increasingly focused on developing UN responses to emerging challenges, such as climate change, the global food crisis and the global financial and economic crisis, as outlined below. 1. Climate Change Co-ordination The CEB had already launched an initiative on climate change in early 2007. Unprecedented interest was triggered by a report of the Intergovernmental Panel on Climate Change (IPCC) issued in February 2007 which concluded that ‘warming of the climate system is unequivocal’ and that increases in temperature are ‘very likely’ as a result of the increasing concentration of greenhouse gases due to human activities.53 The United Nations Framework Convention on Climate Change (UNFCCC) establishes limits on greenhouse gas emissions for individual nations to address global warming, with enforcement provisions agreed upon under the Kyoto Protocol, which was due to expire in 2012. In early 2007, efforts focused on preparing negotiations for a post-Kyoto Protocol, with the aim of reaching agreement by 2009 to allow time for ratification prior to 2012. Essential to success was the participation of the most important emitters of greenhouse gases, not only the United States, which is not a signatory of the Kyoto Protocol, but also key developing countries, in particular China and India. The negotiation process included a series of UNFCCC meetings, including conferences in Bali, Indonesia, in December 2007, and in Poznan, Poland, in December 2008. The final conference in Copenhagen in December 2009 was expected to determine the post-2012 climate change regime. Soon after taking office, the new Secretary-General, Ban Ki-moon, declared climate change to be one of his main priorities. During the CEB meeting in April 2007, he requested that the Chair of HLCP, supported by the CEB secretariat, undertake an assessment of the UN’s current role in climate change in preparation of the UNFCCC Bali Conference. For the next two years, the key issue that the HLCP focused on was climate change. In June 2007, the Chairman of the HLCP convened consultations in Rome to initiate preparation for the Bali Conference, which was attended by a number of executive heads and senior officials.54 Although the UNFCCC secretariat had taken the lead for the UN system, UN system co-ordination was considered necessary in the negotiating process. The meeting called for the preparation of an overview document of UN system activities in response to climate change, as well as the development of a systemwide strategy for submission to the UNFCCC meeting in Bali in December 2007. The results of the consultations were endorsed in July 2007, during the HLCP’s interses53 It was argued that global temperature may rise by up to 6.4°C (11.5°F) before the end of the century. As a result, the sea level might increase by up to 7 metres (23 feet), accompanied by heavy precipitation and floods, heat waves, and increased tropical cyclone activities. The impact would be felt everywhere, with the most damage in developing countries. In order to stabilize the atmosphere, emissions would need to be cut by 60 to 80 per cent, implying the need for major investments and fundamental lifestyle changes. 54 Report of the Meeting on United Nations System Cooperation on Climate Change, CEB document 2007/HLCP-XIV/CRP.3, 10 September 2007.

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sional session. It was agreed that an overview document and a strategy document would be prepared. The overview document distinguished between four thematic areas (mitigation, adaptation, technology, finance) and provided an analytical perspective of the work of the UN system, including scientific assessment, monitoring aspects of climate change and policy implications. The strategy document would draw up welltargeted, policy-oriented CEB initiatives. Both documents were intended to be delivered by the UN Secretary-General at the Bali conference as the UN system’s contribution. In September 2007, the HLCP55 reviewed an inventory of UN activities on climate56 and the strategy document.57 The documents were compiled on the basis of written submissions from members of the CEB and a number of differences emerged during the review. For some members, the key concerns were the importance of addressing climate change in a sustainable development context and the need to develop stronger links between climate objectives and internationally agreed-upon development goals. Mainstreaming climate throughout the UN system was seen as critical to achieving this. Some members emphasized the human dimension of climate change, including disaster preparedness, involvement of local authorities, education and the participation of children in decision-making and advocacy. Others argued that more emphasis should be given to UN’s core normative activities in providing scientific and technical information to enable evidence-based decision-making. In order to avoid downgrading these activities to cross-cutting issues, a revised list of thematic areas could include – in addition to mitigation, adaptation, technology and finance – monitoring, early warning and assessment and science. Other proposals for new thematic areas included climate-proofing UN activities at all levels; supporting developing countries meet their climate objectives; and leading by example (Greening the UN). Participants stressed the need to develop a more detailed inventory document to reflect the whole array of activities under way across the UN system. It was emphasized that the strategy document should be revised to better carry a political message, illustrate synergies, inspire trust and confidence in the UN’s ability to deliver, and flag issues ripe for action. On process, UNEP offered to lead a group of UN organizations with significant climate-change related capacity to help further develop the climate strategy document. Rather than identifying a lead agency, there was a clear preference for a lean arrangement with convening agencies, whereby key expertise would be drawn from across the system. Concern was also expressed that the HLCP needed to present an effective mechanism for taking the strategy forward after the Bali conference. In order to prepare the proposal for CEB consideration, an open-ended working group on climate change was established which would be convened by the HLCP Vice-Chairman. The 55

Report of the Fourteenth Session of HLCP, IBM Palisades, New York, 20-21 September 2007, CEB document 2007/7, 15 October 2007. 56 Overview and Analysis and Inventory of UN System Activities on Climate Change, CEB document 2007/HLCP-XIV/CRP.4, 11 September 2007. 57 Strategic Recommendations: Future Engagement of the United Nations in Climate Change, CEB document 2007/HLCP-XIV/CRP.5, 12 September 2007.

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working group included representatives from UNFCCC, UNEP and the SecretaryGeneral’s Policy Committee in a central role. In addition, the Committee took up a report on climate-neutral UN system, essentially prepared by UNEP and the EMG.58 The initiative responded to the Secretary-General’s call to ‘green the UN’ by moving toward climate-neutrality and sustainable procurement. The report outlined plans for UN agencies to make their facilities, operations and travel climate-neutral. It also included a draft statement for consideration at the CEB whereby executive heads would commit to moving towards climate-neutrality. In addition to the HLCP, the financial implications of the report were also examined by the HLCM, which raised concern over the eventual costs. The report was subsequently finalized at the annual meeting of the EMG in October 2007. In October 2007, a CEB retreat approved a joint paper on climate change for submission to the Bali conference in December 2007. With regard to priorities for action by the UN system, it was agreed that science and monitoring would not constitute a fifth pillar, but would constitute cross-cutting issues. At Bali, the UN SecretaryGeneral would represent and announce a common vision. The role of the heads of agencies would then be to elaborate on how they planned to deliver their contributions. It was decided that, following the Bali Conference, a more complete report would subsequently be prepared for the General Assembly’s thematic debate in February 2008. As recommended by the HLCP, the Board also decided not to create a heavy coordination structure to deal with climate change and appealed to the various agencies to avoid turf battles. The UNFCCC conference in Bali, held from 3 to 15 December 2007, brought together more than 10,000 participants, including representatives of over 180 countries, observers from intergovernmental and non-governmental organizations and the media. Prior to the Bali conference, the President of the UN General Assembly had convened informal consultations in July and August 2007 and the Secretary-General convened a one-day high-level event on climate change on 24 September 2007 to pave the way for an agreement in Bali. With the adoption of the Bali Road Map and Action Plan, the UNFCCC conference formally launched negotiations to reach a global agreement by the end of 2009, agreed to an agenda and set a deadline for negotiations. On behalf of the UN system, the Secretary-General presented the report ‘Co-ordinated United Nations system action on climate change’, prepared by the HLCP and CEB. The report provided an overview of the UN system’s climate change activities and defined key areas of action and a co-ordination structure for the UN system. The presentation listed science, assessment, monitoring and early warning as the bases for informed action; it then described the UN system’s contributions within the four key themes of adaptation, mitigation, technology and finance, without accounting for the financial resources allocated to each activity. The document also outlined the UN system’s process for establishing climate-neutrality in its own work. The Secretary-General offered to improve co-ordination in support of the UNFCCC negotiating process over the next two years. Specifically, the UN system could provide inputs to the negotiations on further mandates that could be included post-2012. In addition, improved coordination could support national efforts to track climate change, as outlined in the 58

Toward a Climate Neutral UN, CEB document 2007/HLCP-XIV/CRP.18, 14 September 2007.

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Bali Action Plan and Road Map. In particular, the UN could provide assistance in the area of adaptation. Several agencies were already working on adaptation plans to be put before their governing bodies. Following the Bali meeting, the UN system faced great expectations on the part of member states that it would turn the initial CEB work into something concrete. The Bali Conference was followed by the General Assembly’s thematic debate on climate change in February 2008 in New York. The Secretary-General submitted a report entitled ‘Overview of United Nations activities in relation to climate change’59 which basically conveyed the findings of the CEB paper. The inventory was further developed and was issued in matrix format as a supplement to the Secretary-General’s report. The matrix listed UN system support for each of the four themes in the following sectors: • Energy (UNDP, UNEP, UNIDO, UNDESA, FAO, IFAD, UNCTAD, IBRD, GEF, IAEA, UN-HABITAT, UNICEF, inter-agency co-ordination body UN-Energy) • Agriculture and fisheries (FAO, IFAD, WFP, IBRD, WMO, UNEP, UNIDO, Convention on Biological Diversity, IAEA) • Water (UNEP, UNDP, UNESCO, WMO, UNDESA, OCHA, FAO, IBRD, IFAD, UNIDO, UN-HABITAT, UNICEF, IAEA, Convention on Biological Diversity, inter-agency co-ordination body UN-Water) • Oceans (UNESCO, IMO, WMO, UNEP, IAEA, UNDESA, FAO, GEF, Convention on Biological Diversity, inter-agency co-ordination body UN-Oceans) • Forestry (UNDESA, FAO, UNEP, UNDP, UNFCCC, IBRD, IFAD, UN Convention to Combat Desertification, Convention on Biological Diversity, UN regional commissions, WFP) • Health (WHO, UNICEF, UNFPA, IBRD, UNDP, UNEP, UNESCO, IAEA, Convention on Biological Diversity) • Transport (ICAO, IMO, World Bank Group, UNDP, UNEP, GEF, UNCTAD, UN-HABITAT, WTO, UN regional commissions, UNDESA) • Disaster risk reduction (ISDR, OCHA, WMO, FAO, UNDP, UNEP, WFP, UNESCO, IBRD, UN-HABITAT, IMO, UNFPA, ITU, IFAD, UNICEF, UN Convention to Combat Desertification) • Population and human settlements (UN-HABITAT, UNFPA, UNESCO, UNDP, UNDESA, ISDR) •

Education (UNESCO, UNEP, UNICEF, UNDP, WMO, WHO, FAO, UNU)

• Public awareness raising (All UN system organizations in their respective fields of activity) 59 Overview of United Nations Activities in Relation to Climate Change, Report of the SecretaryGeneral, UN document A/62/644, 10 January 2008.

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The report of the Secretary-General was received positively by member state, in particular the members of the European Union. Some concern was expressed by the Group of 77, which had emphasized the prerogative of member states to establish mandates through the ongoing negotiations and stressed the predominance of the UNFCCC process. They also argued that the response to climate change should be firmly anchored in the broader context of sustainable development and financial resources for climate change should be in addition to those for official development assistance (ODA). The thematic debate concluded in the expectation of further coordinated action by the CEB on climate change. Climate change was again at the top of the agenda during the HLCP meeting in March60 and the CEB meeting in April 2008.61 Discussion focused on how to proceed.62 It was understood that the UN Secretary-General would continue to lead the overall co-ordination approach for the UN system. Members considered the need for a strategic oversight body at a high level, which could provide broad policy direction, decide on the handling of cross-sectoral issues, and advise the UN Secretary-General and the Executive Heads. One option included the establishment of a CEB climatechange-specific cluster of executive heads reporting to the UN Secretary-General. Another option was the establishment of a formal standing body of the CEB, mandated to deal with climate change issues under the leadership of an executive head. In order to keep the arrangements minimal, it was agreed that the CEB would continue to act as the co-ordination framework of the UN system and oversee the work carried out by HLCP in the lead-up to the Copenhagen Conference in 2009. The HLCP and its working group on climate change would evolve their practices and work closely with the UNFCCC. To support country-level work, the UNDG was also brought into tandem with the HLCP. On financing and technology transfer, the World Bank indicated that it had been entrusted with a major mandate in that area and would be ready to participate in joint work. There were considerable differences over whether to adopt an issue-oriented or sectoral approach to co-ordination. A sectoral approach had been promoted in the CEB paper presented at the Bali conference. It was argued that adaptation was sector-based, that carbon emissions were calculated by sector, that the counterparts of UN agencies were mainly sectoral ministries, and that the UN system already had several sectoral co-ordination mechanisms, such as UN-Energy, UN-Water and UN-Oceans. Moreover, some of those mechanisms had vertical dimensions down to the implementation level, such as UN-Energy Africa. Building on those existing mechanisms would also demonstrate that climate change and sustainable development were fully interlinked. Other UN agencies argued for an issue-oriented approach and the proposal was made to establish four networks related to adaptation, mitigation, technology and financing, respectively. Having some 16 sectoral co-ordination processes would not be 60 Report on the Fifteenth Session of HLCP, Rome, 13 and 14 March 2008, CEB document 2008/4, 11 April 2008. 61 First Regular Session of CEB 2008, Bern, 28 April 2008, CEB document 2008/1, 20 May 2008. 62 UN System Co-ordination Arrangements on Climate Change, Issue Paper, CEB document 2008/HLCP-XV/CRP.7, 29 February 2008.

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coherent; such a structure would make it time-consuming for agencies to engage with numerous groups and undermine the cross-sectoral issues. Governments in developing countries were increasingly bringing together various sectors to deal with adaptation issues. Finally, a combination of both approaches was approved and described as a demand-driven approach. Taking into account the work plan recently outlined at the climate change talks in Bangkok, this included nine focus and cross-cutting areas. The five focus areas and the designated convening agencies were:63 •

Adaptation: HLCP Working Group on Climate Change

•

Technology transfer: UNIDO, UNDESA

• Reduction of emissions from deforestation and forest degradation (REDD): UNDP, FAO, UNEP •

Financing mitigation and adaptation actions: UNDP, IBRD

•

Capacity building: UNDP, UNEP

Work would also continue in the following four cross-cutting areas: •

Science, assessment, monitoring and early warning: WMO, UNESCO

• Supporting global, regional and national action: UNDP, UNDESA, UN regional commissions •

Climate-neutral UN: UNEP

•

Public awareness raising: UN Communications Group, UNEP

Sectoral work was expected to continue on the basis of member state demands and coordinated through existing mechanisms, such as UN-Energy, UN-Water and UNOceans. Finally, to support information exchanges and results tracking, the inventory of UN system activities would be transformed into a web-based tool. In October 2008, the CEB reviewed the publication ‘Acting on Climate Change: The UN System Delivering as One’ for submission to the UNFCCC conference in Poznan, in December 2008.64 The document had been prepared by the HLCP Working Group on Climate Change in co-operation with the UNFCCC secretariat, UNDG and the UN Secretary-General’s Climate Change Support Team (CCST). The initial idea had been to prepare a short document outlining the UN system’s overall commitment to working together and what the system was doing in general terms. But the interest shown by UN entities had led to the preparation of a longer document. The document described the collective efforts of the UN system with regard to climate change. A network of managers was now involved and most organizations had adopted a framework for action. The agreement on five focus and four cross-cutting areas was recalled. The groups corresponding to those areas had started to meet and the hope was 63

Annual Overview Report of the CEB for 2008/2009, UN document E/2009/67, 7 May 2009, pages 8 and 9. 64 Second Regular Session of CEB 2008, UN, New York, 24-25 October 2008, CEB document CEB/2008/2, 19 November 2008.

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expressed that they would evolve into communities of practice, eventually achieving the co-ordinated preparation of activities and ‘Delivering as One’ on programmes and joint projects. It had been agreed that no new UN body should be created. Instead, work would be pursued across institutions in a co-ordinated way. General support was expressed for the Secretary-General as the only speaker on the UN system and climate change at the Poznan conference. In this regard, it was considered important to dispel a perception that the World Bank was operating on its own. In December 2008, during the UNFCCC Poznan conference, the CEB document was presented at a side event on ‘Acting on Climate Change: the UN System Delivering as One’ attended by 350 people. The event was opened by the UN SecretaryGeneral and the panel of heads of WMO, UNIDO, UNEP, UN-HABITAT, and UNDESA as well as representatives from the World Bank, UNDP and FAO. The UN system increasingly spoke with one voice in contrast to the previous agency-owned side events. Contrary to the initial intent, however, it had not been possible to launch the on-line inventory of UN system activities on climate change prior to the Poznan conference. With the UNFCCC conference in Copenhagen getting closer, the Secretary-General declared 2009 to be a crucial year for climate change. Participants in the Copenhagen Conference would need to agree on how much industrialized countries should reduce their emissions and what developing countries were willing to do to limit the growth of their own emissions. The industrialized nations were expected not to be able to reach any agreement without corresponding commitments by developing countries. Developing countries, in turn, would not be willing to address climate change unless financial support systems for both mitigation and adaptation were created. During the meeting of the HLCP in February 200965 and the CEB in April 2009,66 a two-track approach was approved in preparation for the Copenhagen Conference.67 First, the convening agencies of the nine focus and cross-cutting areas would concentrate on the substantive work in their respective areas, possibly presenting reports on the work done to the Copenhagen Conference. Second, the HLCP would prepare another overview publication, including an action plan. It was considered important to address the role of the UN system in the post-Copenhagen architecture, including the management of financing and the promotion of the MDGs. In order to decide on those contributions, closer collaboration between the HLCP and the UNDG was considered necessary, facilitated by a bridging mechanism between the two. Stronger links would also need to be established between the HLCP and the Inter-Agency Steering Committee (IASC). There was as urgent need to show concrete results through the CEB co-ordination arrangement. To do this, a small number of collaborative projects were being explored. The UNFCCC secretariat was identifying mandate gaps and priority issues that would warrant collaborative UN system action. The UNDG was involved through its 65 Report of the Seventeenth Session of HLCP, Geneva, 26-27 February 2009, CEB document 2009/4, 23 March 2009. 66 First Regular Session of CEB 2009, Paris, 4-5 April 2009, CEB document 2009/1, 5 May 2009. 67 Progress Report and Proposed Way Forward for the CEB Climate Change Initiative, CEB document 2009/HLCP-XVII/CRP.3, 13 February 2009.

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Task Team on Climate Change and Environmental Sustainability. The results of that exercise were shared with the convening agencies and collaborative projects were identified in the following areas: • Capacity building: The UNDP and UNEP explore with the United Nations Institute for Training and Research (UNITAR) and the UNFCCC secretariat the possibility of developing training programmes for Least Developed Countries with regard to their participation in the upcoming UNFCCC negotiations, the development of a UN training service platform for climate change, and the holding of an inter-agency meeting to consider UN system efforts for co-operative action on capacity building. • Reduction of emissions from deforestation and forest degradation (UNREDD): FAO, UNDP and UNEP, in co-ordination with the World Bank, will undertake projects in nine pilot countries and their experiences will feed into the UNFCCC process. • Science, assessment, monitoring and early warning: The Global Framework for Climate Services (GFCS) in the area of adaptation is being pursued as possible outcome of World Climate Conference-3 (WCC-3) and a web portal for climate knowledge is being developed, which would be integrated in the UN Climate Change Gateway to demonstrate enhanced delivery in pilot sectors. • Public awareness raising: UNEP and the UN Communication Group (UNCG) Climate Change Task Force are to develop a unifying theme to be used by UN system organizations in their outreach, starting on World Environment Day, 5 June 2009. • Climate-neutral UN: A major effort will be launched by CEB members to meet their commitment to prepare proper greenhouse gas emissions inventories and to have credible emission reduction measures in place by autumn 2009. Co-ordinated fundraising efforts were initiated to support the collaborative projects with the assistance of the CEB secretariat and in co-operation with the SecretaryGeneral’s CCST. In addition, the UNDG Task Team on Climate Change and Environmental Sustainability was developing a guidance note for country teams on mainstreaming environmental sustainability, for incorporation into UNDAF guidelines. The web-based tool for tracking the inventory of UN system activities on climate change, initially planned for November 2008, was finally launched in March 2009. The CEB co-ordination effort led to a more systematic conceptualization and presentation of the work of the UN system. It did not, however, advance the substantive work in a commensurate way. Tight deadlines for reporting to the HLCP and its Climate Change Working Group drove the process more to outputs like the Bali and Poznan publications rather than the development of concrete new initiatives and substantive work. Concern was expressed about the red tape that delayed UN action and the need for closer co-operation between the HLCP and UNDG was highlighted. The CEB secretariat’s engagement was expected to end after Copenhagen and there was a need for the conveners of the various focus and cross-cutting areas to take ownership of the process.

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2. Food Security Co-ordination A second CEB-driven co-ordination effort represents the joint response to the global food crisis. The years 2007 and 2008 saw a dramatic rise in world food prices, creating a global crisis and causing hardship in both developed and developing countries and political instability and violent protests in over 25 countries in Asia, Africa and Latin America. Among the initial causes of the price spikes were unseasonable droughts in grain-producing nations. Rising oil prices further increased the costs of fertilizers, food transport and industrial agriculture. Other causes included the rising use of biofuels and a change in diet across the expanding middle-class populations of Asia, with an increased demand for meat. By mid-2008, the average world price of rice had risen by over 200 per cent during the past two years; for wheat, maize and soybeans, the increase had been over 100 per cent. According to the FAO, the number of undernourished people in the world was nearly one billion in 2008 or 15 per cent of the total population. The CEB retreat in Bern in April 2008 was dedicated to the world food crisis. The CEB communiqué announced a unified UN response to the global food price challenge.68 The Board agreed on a common strategy to support developing countries in this crisis and established a High-level Task Force (HLTF)69 on the Global Food Security Crisis. The HLTF brought together the executive heads of CEB organizations under the leadership of the UN Secretary-General. The objective of the Task Force was to co-ordinate action in responding to both immediate and longer-term food challenges. Its principal functions were to advise the UN Secretary-General and to develop a Comprehensive Framework for Action (CFA) with governments and key external actors. The Director-General of the FAO, Jacques Diouf, served as the Vice-Chairman of the HLTF, UN Under-Secretary-General John Holmes as Task Force Co-ordinator and Assistant Secretary-General David Nabarro as Deputy Co-ordinator. The Task Force Co-ordinator chaired a Senior Steering Group which provided the Task Force with analysis and advice. The Task Force and the Steering Group were supported by the HLTF Co-ordination Secretariat with a total of about 10 staff located in Rome, hosted by IFAD, and with additional offices in Geneva, New York and Washington. The three Rome-based UN system entities – IFAD, FAO and WFP – co-ordinated their capacities within a food security theme group.

68 A Unified United Nations Response to the Global Food Price Challenge, Appendix to First Regular Session of CEB 2008, UPU, Bern, 28 April 2008, CEB document 2008/1, 20 May 2008. 69 HLTF participation, www.un.org/issues/food/taskforce: FAO, IFAD, IMF, United Nations Office of the High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States (OHRLLS), UNCTAD, UNDP, UNEP, UNHCR, UNICEF, WFP, WHO, World Bank, WTO, UN Department of Economic and Social Affairs (UNDESA), United Nations Department of Political Affairs (UNDPA), United Nations Department of Public Information (UNDPI), United Nations Department of Peacekeeping Operations (UNDPKO); United Nations Special Advisor on Millennium Development Goals (UNMDG), OECD.

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Monthly meetings of the Task Force started in New York in May 2008 and were regularly chaired by the UN Secretary-General. The first priority was the preparation of the CFA and the HLTF Co-ordinator was to produce a broad outline within three weeks.70 The Task Force also prepared joint position statements for a number of upcoming meetings. These included the High-Level Meeting of ECOSOC held in May 2008 to consider the impact of the global food crisis on food security for the poor. Also in May 2008, the Human Rights Councils held a special session on the negative impact of the world food crisis on the realization of the right to food. In June 2008, the FAO held a High-Level Conference on World Food Security and the Challenges of Climate Change and Bioenergy in Rome. The Conference called for increased food production, fewer trade restrictions, and more agricultural research. Elements of a CFA were circulated during the High-Level Conference. Even though the Summit was not a pledging conference, USD 18 billion was mobilized for food security and agriculture. In July 2008, the HLTF released the CFA, which outlined a UN system response to address the food crisis and aimed to be a catalyst for action for governments, international and regional organizations, and civil society groups.71 The CFA pursued a twintrack approach: It outlined activities related to meeting immediate needs, such as investing in food assistance, short-term productivity boosts and social safety nets, as well as activities related to longer-term structural needs, such as scaling up investment in agriculture within developing countries, developing social protection measures, biofuels, investments in agricultural productivity and long-term trade issues. Actions to achieve CFA outcomes at the country level were to make use of institutional and financial systems in accordance with the provisions of the Paris Declaration on Aid Effectiveness. Global incremental financing requirements were estimated at between USD 25 and USD 40 billion per annum. As outlined in the CFA, the most active members of the UN system in addressing this crisis included the following: • The WFP, through the Global Response to High Food Prices initiative, enhanced the availability of nutritious food products to vulnerable groups. • The World Bank Group, through the New Deal on Global Food Policy, supported safety nets such as school feeding and food for work and launched a new Global Food Response Programme, a USD 1.2-billion rapid financing facility. • The FAO directed USD 59 million to assist the most severely affected countries during the planting seasons in 2008. • The IFAD made USD 200 million available to support increased production by family farmers. • The IMF conducted a study of the macro-economic consequences of the food and fuel crisis. 70

First Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 12 May 2008. 71 Outcomes and Actions for Global Food Security, Excerpts from ‘Comprehensive Framework for Action’, HLTF report, July 2008.

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• The WHO focused on the health and nutrition challenges caused by the global food crisis. • The UNDP helped governments prepare strategies to expand sustainable agricultural production and productivity, and design safety nets for the vulnerable. • The UN allocated USD 100 million from the Central Emergency Fund to respond to the most immediate life-saving activities related to food security, agriculture, health and nutrition. •

UNDESA conducted a cross-sectoral analysis on the current food crisis.

The Secretary-General hailed the finalization of the CFA as a great achievement which had set a positive precedent for what can be achieved when all UN and Bretton Woods institutions work together closely. He emphasized the need to translate the CFA into quick and concrete action. The CFA had been released ahead of the G8 Hokkaido Tokyo Summit which was held in July 2008. The HLTF had managed to have a measurable impact on the outcome of the meeting. The G8 leaders issued a statement on the global food crisis, recognizing the UN’s co-ordinating role and recording their support for the HLTF and the CFA. They also emphasized the urgency of short-term needs and expressed their commitment to reversing the decline in food aid and investment. In late 2008 and early 2009, a series of high-level meetings were held on aspects of the food crisis at which the HLTF was represented. These included the High-level Meeting on Africa’s Development Needs, the High-level Meeting on Achieving the Millennium Development Goals by 2015, and the UN Private Sector Forum on the Millennium Development Goals and Food Sustainability held at the UN in New York in September 2009. They were followed in January 2009 by the High-level Meeting on Food Security for All convened by the Spanish government and the UN in Madrid. David Nabarro took over from John Holmes as Co-ordinator of the HLTF as of January 2009. In early 2009, the dynamics of the global food crisis had changed. Food prices had fallen somewhat but remained high and other concerns took centre stage internationally, such as the financial crisis and the rapid increase in fuel prices. During the HLTF meeting in September 2008, members warned that, although the food crisis remained profound and urgent, it was in danger of becoming a neglected crisis. The resources available to address the crisis remained inadequate and the pledges at the June 2008 Rome conference had not turned into funding. Of the WFP request for USD 775 million of emergency food assistance, only 10 per cent of the funds were available. In 2009, based on the CFA, the HLTF focused on supporting co-ordination at the country level, starting with 30 countries, and on fund-raising activities.72 With regard to co-ordination at the country level, the HLTF Co-ordination Secretariat provided guidance to RCs and country representatives and supported the UNCTs with global advocacy efforts. On fund-raising, a sub-group of the HLTF had met three times in early 2009 to develop a plan to better co-ordinate resource mobilization. Concerns 72

Programme of Work 2009, HLTF, 2009.

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were raised that the creation of the sub-group would result in a new layer of bureaucracy and undermine the ability of recipient governments to co-ordinate external assistance themselves through existing in-country processes such as the Consolidated Humanitarian Appeals Process and UNDAF. The system of governance was becoming complex and slowing down operations. In July 2009, food security was back on the international agenda when the Group of 8 pledged to mobilize USD 20 billion to address the crisis. 3. Global Financial and Economic Crisis Co-ordination During October 2008, the CEB devoted its retreat session in New York to a thematic discussion of the financial crisis and the global energy challenge.73 The principal economic and social CEB member organizations had been requested to take a leading role in the preparation of the retreat. Input to the CEB retreat had been provided by the HLCP following its meeting in Rome in September 2008. It was understood that any useful response would have to be extremely rapid. Practically all UN system organizations were in the process of analysing the issues involved. They needed to review the implications for co-ordinated actions and to raise the profile of the multilateral system. In order to identify the key contributions of the UN system organizations, it was suggested that the focus should be on the social dimensions of the crisis in terms of education, employment, food security, health, housing, and poverty. In February 2009, as requested by the CEB, the HLCP74 considered how best to deal with the financial crisis and considered an issue paper. It was felt that the CEB should articulate a system-wide response to the financial crisis similar to the response to the food crisis. Some parties anticipated that member states would come to the UN for assistance when they had exhausted other remedies, as had been the case when the food crisis took on a security dimension in 2008. The UN system should therefore already be preparing entry points for a concrete response, in the event of its being asked to intervene in the crisis. The CEB secretariat would develop, with possible support from the UNCG, a communications and advocacy strategy, including a web site. The issue paper on the financial crisis listed the contributions of various CEB member organizations in the areas of finance, trade, employment, production, environment, social service, security and social stability, and international co-operation. In addition, joint crisis initiatives were listed, including the social protection floor, food security, aid and finance for trade, green economy, global jobs pact, protecting lives and addressing hunger and humanitarian needs. Some of these initiatives were directly connected with the ongoing work of the HLCP, which could be re-directed in light of the crisis. In order to ensure coherence, it was proposed that each of the crisis initiatives should be developed based on the commitment of one or two lead agencies, which would volunteer to guide the work of a group of interested agencies. The objec73 Second Regular Session of CEB 2008, UN, New York, 24-25 October 2008, CEB document 2008/2, 19 November 2008. 74 Report on the Seventeenth Session of HLCP, Geneva, 26-27 February 2009, CEB document 2009/4, 23 March 2009 and Issue Paper by Chair of HLCP, CEB document 2009/HLCP-XVII/CRP.1, 24 February 2009.

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tive would be to produce a policy paper with in-depth analysis and proposals for action. The HLCP and UNDG would also jointly discuss ways to translate the policy paper into more precise policy guidance for RCs and agency representatives at the country level. The timeframe for the work had to be very short if it was to be useful. The policy paper would be required for submission to the CEB in early April 2009 and discussions at the ECOSOC session in Geneva during June 2009. In April 2009, at a second retreat on the financial crisis, held in Paris, the CEB agreed to the revised issue paper, including joint initiatives.75 The paper had been prepared by the Chairperson of the HLCM and presented the following nine joint initiatives: • Additional financing for the most vulnerable: Devising a joint World BankUN system mechanism for the implementation of additional financing, including through the proposed vulnerability fund of the World Bank. (Lead agencies: World Bank, UNDP) • Food security: Strengthening programmes to feed the hungry and expanding support to farmers in developing countries. (Ongoing High-level Task Force; lead agencies: FAO, UN, WFP, IFAD) • Trade: Fighting protectionism, including through the conclusion of the Doha Round and strengthening Aid-for-Trade initiatives and finance for trade. (Lead agencies: WTO, UNCTAD) • Green Economy Initiative: Promoting investment in long-term environmental sustainability and putting the world on a climate-friendly path. (Ongoing initiative; lead agency: UNEP) • Global jobs pact: Boosting employment, production, investment and aggregate demand, and promoting decent work for all. (Lead agency: ILO) • Social protection floor: Ensuring access to basic social services, shelter, and empowerment and protection of the poor and vulnerable. (Lead agencies: WHO, ILO) • Humanitarian action, security and social stability: Emergency action to protect lives and livelihoods, meet hunger and humanitarian needs, protect displaced people and shore up security and social stability. (Lead agency: WFP) • Technology and innovation: Developing technological infrastructure to facilitate the promotion of and access to innovation. (Lead agencies: WIPO, UNIDO, ITU) • Monitoring and analysis: Strengthening macro-economic surveillance and implementing an economic early warning system; establishing a UN system-wide vulnerability monitoring mechanism to track the political, economic, social and environmental dimensions of the crisis. (Lead agency: UNDESA)

75 Annual Overview Report of the CEB for 2008/2009, UN document E/2009/67, 7 May 2009, page 6 and 7.

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The issue paper was intended to be shared with the governing bodies of the various UN system entities, submitted by the Secretary-General to the G20 meeting and discussed at the margin of the 2009 ECOSOC session and the UN Conference on the World Financial Crisis and Its Impact on Development in June 2009. 4. CEB Interface with ECOSOC In order to enhance substantive interaction between ECOSOC and the CEB initiatives on climate change, food security and financial crisis, a number of new interfaces were envisaged.76 For the first time, the ECOSOC co-ordination segment in June 2009 started with a presentation of the CEB’s annual overview report outlining the work done. In addition, two panel discussions were held on ‘The impact of the current financial crisis on sustainable development, including its social consequences’ and ‘The UN system’s role in sustainable development’, which highlighted climate change and the food crises. Other options considered included the introduction of a panel discussion by the executive heads of clusters of agencies so as to cover, over a period of three to four years, all aspects of the system’s work. The efforts to enhance substantive interaction between ECOSOC and the CEB were not welcomed by everyone involved. Whereas some CEB members considered that this would risk constraining the CEB’s agenda and inhibiting its ability to respond effectively to emerging issues, member states raised the issue of accountability of inter-agency mechanisms. F. THE LIMITS OF UN REFORM The UN system is in need of reform. This has been the consensus throughout the 60+ years of its existence. Finding agreement by reconciling the different priorities and interests has been a difficult and tortuous process. Actual implementation often fell short of initial expectations. What are the limits of UN reform? Do structural barriers exist that are difficult to overcome? Might the UN be ultimately unreformable? The history of UN reform provides some insight into these questions. This is especially true of the recent period in which new reform initiatives have looked beyond the UN proper and covered the coherence of the UN system as a whole, addressing the challenge of a multitude of agencies working together. 1. History77 In the early years of the UN in the 1950s, the Organization was subjected to the stalemate of the Cold War. Decolonization and the increase in membership shifted the fo76

Note on the Engagement of the UN System in the Work of the Co-ordination Segment of ECOSOC, UN-DESA, CEB document 2009/HLCP-XVII/CRP.5, 13 February 2009. 77 Joachim Müller, Reforming the United Nations, Kluwer Law International, The Hague, The Netherlands, and Martinus Nijhoff Publishers, Leiden, The Netherlands, including New Initiatives and Past Efforts, Volumes I to III, 1997; The Quiet Revolution, Volume IV, 2001; The Struggle for Legitimacy and Effectiveness, Volume V, 2006.

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cus to development issues, with corresponding budget increases. The East-West antagonism, in turn, exaggerated the subsequent North-South conflict in the 1960 and 1970s. In this context, fundamental reform efforts could not succeed. Instead, the UN experienced numerous financial crises, while the United States and its allies retreated from the Organization. Reforms aimed to protect the Organization from collapse by appeasing its critics with the introduction of a new budgetary process or the downsizing of the Organization. The politicization of the Organization was both a reason and an excuse for not improving efficiency. With the end of the Cold War in the late 1980s, a new global consensus developed, and corresponding opportunities arose for the UN. Political agreement and operational competence was not sufficient, however, to support new peace operations. In the wake of widespread disappointment with the peacekeeping operations in Somalia and the former Yugoslavia, there was a marked retreat from assertive multilateralism in the second half of the 1990s. The appointment of Secretary-General Kofi Annan promised a new start and a fundamental restructuring of the Organization so that it could become a competent tool for intervention in global affairs. What is known as the Quiet Revolution during late 1990s and early 2000 resulted in better co-ordination and co-operation within the UN development and humanitarian system. Other reforms included the revamping of peacekeeping operations following the Brahimi Report. The initiative led to the Millennium Summit in 2000, which, for the first time, clearly identified organizational goals by approving the Millennium Development Goals to combat poverty, hunger and disease. As well, the fight against the HIV/AIDS pandemic was energized. Those efforts were not sufficient to re-establish legitimacy and effectiveness. The first setback was the failure to agree on a reform of the Security Council, followed by the failure of the Security Council to either endorse or prevent military action in Iraq. In the midst of this exercise, questions of integrity, ethics and management competence were raised in connection with the investigation of the UN Oil-for-Food Programme. The 2005 World Summit reached agreement on issues of security, human rights and development. A grand bargain, however, was not achieved and much was left to be done in follow-up efforts. 2. Follow-up on the 2005 World Summit The key outcome of the Summit had been the recognition, albeit mainly symbolic, of an international ‘responsibility to protect’ populations from genocide. Subsequent efforts to operationalize this new commitment were unsuccessful and highlighted the deep divisions between member states that were already apparent at the time of the Summit. The replacement of the Commission on Human Rights by the Human Rights Council was not seen to have made a marked change in its operation and the new Peacebuilding Commission, established without decision-making power, had little impact. No agreement could be reached on establishing a terrorism convention. The commitment to review and discontinue obsolete mandates in order to focus on programme activities had been abandoned. In the area of management, additional mechanisms were established and resources dedicated to strengthening oversight, including audit, whistle-blower protection, and ethics training. The streamlining of staff contracts and the upgrading of field staff to the level of headquarters staff were considered

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as major achievements. Considerable resources were dedicated to other major projects, such as the renovation of the UN Headquarters, implementation of a new ERP system, and introduction of new accounting standards which was rescheduled for the UN from 2010 to 2014, but little progress was achieved. 3. Peacekeeping Reform Following the rapid growth in peacekeeping operations in recent years, the peacekeeping department was reorganized and separated into two entities, one dedicated to policy development and the second to peacekeeping mission management. Moreover, the management of peacekeeping missions was increasingly decentralized from headquarters to the country level. Headquarters-based capacity for direction and oversight of missions, however, was considered to lag behind. The reforms tried better cope with the increase in peacekeeping operations, but a number of challenges remained. The United Kingdom and France launched a reform effort in February 2009 which addressed the rapid growth in the number and complexity of operations. Proposals included the improvement of oversight by reinforcing the work of the Security Council and the secretariat on preparation, planning and monitoring of missions (improving the quality of military advice, risk analysis, resolution drafting, benchmarking, best practices and completion strategies). Overstretch and huge costs were to be addressed by rigorously assessing new commitments, downsizing and closing existing operations, outsourcing activities to third parties and sharing the burden with other organizations. 4. Security Council Reform Security Council reform is a slow-moving process and reform fatigue seems to be widespread. The 63rd General Assembly succeeded to move the reform process from consensus-based consultation to intergovernmental negotiations. Despite this move, it continues to be unlikely that one of the various interest groupings will succeed in gathering sufficient support. Germany and Japan may have had the best chances of getting permanent seats in the 1990s, when the main arguments were based on the size of payments to the UN. Popular sentiment moved away from adding more industrialized nations in favour of adding more developing countries, with India as a prime candidate for a permanent seat. No final conclusion has been reached; it appears likely, however, that the future will be found at the lowest common denominator, namely agreement on intermediary solutions such as the introduction of a new group of non-permanent members with no change in veto rights. Such an agreement would reflect a defeat of those countries that had initially launched the reform process with the expectation of gaining permanent seats at the Council. 5. System-wide Coherence The effort to enhance the coherence of the UN system initially included a number of loosely related initiatives on which no agreement could be reached during the 2005

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World Summit. Instead, a High-level Panel was asked to formulate new institutional proposals for UN system coherence in the areas of environment, gender and countrylevel operations. The environment initiative was inspired by the earlier French support for consolidating a number of small UN entities into a new and stronger world environment organization. The multitude of UN agencies, MEAs and international treaties working on environmental issues had led to overlap and inefficiencies.78 The problem was aggravated by the blurry distinction between environmental protection and sustainable development. Previous initiatives had failed due to the opposition of the United States in particular, as well as a number of developing countries which did not support a strong entity, supported by the entities that had been targeted for consolidation. Aware of this opposition, the High-level Panel refrained from calling for a world environment organization but focused on increasing coherence and a clearer division of labour between the bodies working in the Integrated Environmental Governance (IEG) system. The opposition to the reform proposals remained and the coherence initiative in the area of environment was abandoned for the time being. On gender, the results were different. Similar to the environment area, the aim was to establish system-wide coherence through consolidation and the establishment of a single strong UN entity to deal with gender issues. This was supported by the developed countries, and particularly enthusiastically by the Nordic countries. The proposal was also supported by an effective campaign by the NGO community reaching back a number of years. Initial resistance came from developing countries, which considered it as an attempt to introduce new conditions on development assistance. Japan and Russia warned about the cost implications of the reform effort, indicating a lack of enthusiasm. Approval in principle was finally granted by the General Assembly in September 2009 for the consolidation of existing entities into a new and stronger ‘composite agency’ after many years of campaigning and negotiations. The government arrangement for the new agency is likely to ensure that it will not be in a position to pursue controversial policies, in particular in developing countries. The system-wide coherence reform initiative focused primarily on operational activities at the country-level. The aim was to provide emphasis and direction to the initiative launched by the 1997 UN secretariat reform (inter-agency co-ordination, UN RCs, UN house) and the 2001 and 2004 TCPRs of Operational Activities for Development of the UN system. The system-wide coherence initiative was presented as a package deal, including the ‘Delivering as One’ concept, harmonization of business practices and aspects of funding and governance. The coherence process was motivated and largely driven by the developed countries, especially the European countries, which were promoting rapid changes in the aid environment. Indeed, the UN’s share of the global aid provided of USD 100 billion had fallen to about 15 per cent because of the major donors’ conviction that the UN was ill conceived to process development funds. The UN was not designed to function as a single cohesive organization. The multitude of UN organizations that had been converging on countries with small-scale projects had exacerbated a series of problems in countries with limited institutional capacities, including poor co-ordination, 78

For more details see Appendix III: International Environmental Governance.

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duplication, high transaction costs, limited country ownership and lack of alignment with country systems. Donors increasingly used different avenues to deliver on their commitment. The outcomes were an increase in bilateral agencies, financial institutions, NGOs and civil society groups and the establishment of new regimes for aid delivery, as defined by the OECD in its 2004 Paris Declaration to improve aid effectiveness. A new aid paradigm was evolving, including partner country leadership, donor alignment with partner countries’ development strategies, harmonization of donor actions, managing for results, and donors and partners being mutually accountable for results. A number of new entities were established within and outside the UN system which embedded the basic principles of aid effectiveness. UNAIDS operates on the principle of one national AIDS action plan, one national AIDS co-ordinating authority, and one country-level monitoring and evaluation system. Other entities included the Global Environment Fund (GEF), the Global Fund to Fight AIDS, Tuberculosis and Malaria (Global Fund),79 and the Global Alliance for Vaccines and Immunization (GAVI). These become increasingly important and are rightly perceived by UN agencies as a competitive threat. The system-wide coherence initiative essentially focused on two major issues. First, it attempted to overcome the fragmentation of the UN system. Second, it attempted to prepare the UN for changes in the aid environment. Indeed, complying with the Paris Declaration was seen as an integral part of the reforms to enhance system-wide coherence. It was understood that both the image and the effectiveness of the UN system were at stake. Aware of the strong opposition, the High-level Panel did not propose outright mergers of UN entities. Instead, it focused on creating synergy by having the UN agencies focus on shared objectives and mutually reinforcing approaches. Its proposal encompassed a framework for a unified and coherent UN structure at the country level. This was to be matched by more coherent governance, funding and management at the centre. Although developing countries had accepted the new partnership arrangement in the OECD context, they were reluctant to apply similar principles to the UN and responded sceptically to the coherence proposals. Discussion followed the traditional North/South divide. Developed countries favoured the merger of UN entities; developing countries considered diversity to be a strength which provided a choice among providers and created resource mobilization opportunities. Consolidation was also seen as leading to an erosion of the influence of developing countries, and narrowing the role of the UN. The UN, in which the developing countries had a bigger stake, would be left with security, humanitarian and environmental issues, while the Bretton Woods organizations, which were considered to be dominated by the developed countries, would have a monopoly over economic matters. Developing countries favoured funding that came through the UN, as it seemed to come with fewer conditions. Recipient countries were looking for compliance with aid commitments, whereas donors insisted that they were achieving efficiency through results-based management and private-sector sub-contracting. The ‘Delivering as One’ initiative developed new operating principles through nine pilot projects starting in 2007. Institutionally this involved primarily the RC and 79

For a detailed description of the Global Fund, see Appendix IV: Evolving Aid Architecture.

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UNCT at the country level, UNDP/DOCO at the headquarters level and the UNDG, HLCP, HLCM and CEB. Initially perceived as a continuation with somewhat different emphasis of previous reform efforts, the UN development system struggled to establish the new coherence concepts and to adjust itself to the Paris Declaration. ‘One Programme’ was accommodated within the UNDAF process by the country’s government and the UNCT on the basis of national priorities. ‘One Budgetary Framework’ was agreed on by the UNCT and describes the available and required resources of each organization in support of the ‘One Programme’, thereby highlighting the funding gaps. ‘One Leader’ resulted in the adjustment of the roles of the RC and the UNCT. ‘One Office’ covers the Joint Office model, building on the previous UN House initiative. It also captures the efforts to achieve more harmonized business processes and to present a unified UN image at the country level. The initial assessments of the pilot projects painted a sobering picture. Progress was reported on increasing national ownership and more closely aligning external assistance with national priorities. The ‘One Budgetary Framework’ had increased the transparency of the UN’s work. Progress had come, however, at an increased cost. The coherence generated in countless co-ordination meetings at the country and headquarters levels resulted in high transaction costs. Simplistic assumptions regarding possible cost savings, such as combined physical locations, failed to materialize but sometimes prompted a spike in administrative costs. Greater efforts were needed to use country systems, including procurement and financial systems. This required amending regulations of the individual agencies, subject to approval by the respective governing bodies, to allow for the use of national systems when engaging in sector support arrangements. Very little progress was achieved in harmonizing business practices with no institutional follow-up. Finally, the UN system made some progress in implementing the principles of the Paris Declaration on aid effectiveness. In order to be convincing, the UN system would need to be prepared to move from agency execution to assisting partner countries in implementing sector programmes through direct budget support. To achieve this, the UN entities will need to relinquish their executing authority. A first step would be to implement the ‘Delivering as One’ concept, which calls for the UNDP to focus on the co-ordination system and disengage from operational activities. 6. Inter-Agency Co-ordination The system-wide coherence initiative had a visible impact on the work of inter-agency co-ordination mechanisms. The CEB, together with the HLCP, HLCM and UNDG, shifted its focus from issuing joint declarations to providing for synergy, avoiding duplication and targeting mandate gaps. Moreover, the CEB increasingly became a voice at intergovernmental conferences and the UN’s regular intergovernmental meetings. The examples illustrated include climate change, food security, and the global financial crisis. The UN system increasingly spoke with one voice. Joint reports and programme documents were presented. This was achieved through a multitude of coordination meetings. The CEB’s co-ordination effort had led to a more systematic conceptualization and presentation of the work of the UN system. It did not, however, advance the substantive work commensurately. Joint programming did not result.

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Rather, the consolidated programme documents represented a patchwork of preexisting programmes which sometimes perpetuated incoherence rather than correcting it. With the CEB becoming more active at intergovernmental meetings, member states raised the issue of the accountability of inter-agency mechanisms. 7. Lessons Learned Whereas interesting insights can be gained from previous efforts, the recent focus on improving the UN’s system-wide coherence and inter-agency co-ordination has indicated, possibly more clearly than previously, the limits of UN reform. The hurdles for system-wide reform are considerable. First of all, the basic challenge for any intergovernmental organization of reconciling the different priorities, national interests, contributions and abilities of its members often proves difficult. After all, the UN and the WHO have 192 member states, followed by the ITU and the UNESCO with 191. Hence, the previous East-West divide was often seen as the reason, and possibly an excuse, for preventing organizational change. As indicated, in recent years, the NorthSouth divide has continued to prevent coherence among member states in the UN’s governing body. Second, there is the requirement for coherence at the inter-agency level to deal with the additional complexity at the intergovernmental level: one member state may be represented with little co-ordination by different ministries at different agencies. Indeed a delegate to the IMF from the finance ministry might have a contradictory position to someone from the health ministry representing the same country at the WHO. Coherence at the intergovernmental level therefore requires not only coherence among different member states, but also coherence among different national institutions within each member state. At the inter-secretariat level, not unlike the intergovernmental level, the UN system is managed by a collective of equals with different mandates and interests, with consensus between agencies as the basis for decision-making process. This creates management and accountability issues. In the absence of formal empowerment, reform depends on moral suasion. It also makes the decision-making process lengthy and cumbersome, as illustrated by the experience under the ‘Delivering as One’ initiative. Finally, UN system reform calls for interaction between the intergovernmental and inter-secretariat levels. Only a few institutional arrangements provide for this, in particular to facilitate an exchange between the CEB and the governing bodies of the specialized agencies. In the case of the UN, ECOSOC, with its central co-ordinating role embedded in the UN Charter, provides an opportunity for dialogue with the CEB. Such interaction, however, has also been viewed critically for infringing member states’ prerogative to deal with inter-agency policy issues. Addressing UN system inefficiencies and overlap by means of co-ordination not only is a lengthy and cumbersome process but also involves a considerable investment in time and resources. Rather than opting for co-ordination, the consolidation and merging of mandates and structures appear to be a precondition for coherent and efficient action. This would require a fundamental restructuring of the UN system which is unlikely to be achieved in view of the tremendous hurdles facing system-wide reforms. Incremental consolidations, restricted to a limited number of entities and focusing on a narrow subject area, appear to be a difficult but workable option: difficult as

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demonstrated by the failure so far to reform international environmental governance; workable as proven in the consolidation of the UN’s gender architecture. This is the challenge. If it restricts change to improving co-ordination, however, the UN’s role in the field of operational activities might diminish further.

APPENDIX ONE

UN SYSTEM ORGANIZATIONS AND PARTICIPATION IN INTER-AGENCY CO-ORDINATION TABLE OF CONTENTS I UN System Information.............................................................................. 1. UN Structure....................................................................................... 2. UN Specialized Agencies ................................................................... 3. Other UN System Bodies.................................................................... II UN Entities ................................................................................................. 1. UN Secretariat Offices at Headquarters.............................................. 1.1. Executive Office of the Secretary-General (UN-EOSG).................... 1.2. Office of the Deputy Secretary-General (UN-ODSG)........................ 1.3. Department of Economic and Social Affairs (UN-DESA)................. 1.4. Department of Political Affairs (UN-DPA)........................................ 1.5. Office for the Co-ordination of Humanitarian Affairs (UN-OCHA).. 1.6. Office of the High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States (UN-OHRLLS) ..................................................... 1.7. Office of the Special Advisor on Africa (UN-OSAA)........................ 1.8. Special Representative of the Secretary-General for Children and Armed Conflict (UN-SRSG/CAC)................................................. 2. UN Secretariat Offices Away from Headquarters .............................. 2.1. Economic Commission for Africa (UN-ECA) ................................... 2.2. Economic Commission for Europe (UN-ECE)................................... 2.3. Economic Commission for Latin America (UN-ECLAC) ................. 2.4. Economic and Social Commission for Asia and the Pacific (UNESCAP).......................................................................................... 2.5. Economic and Social Commission for Western Asia (UN-ESCWA) 3. Other UN Entities ............................................................................... 3.1. Joint United Nations Programme on HIV/AIDS (UNAIDS).............. 3.2. Office of the United Nations High Commissioner for Human Rights (OHCHR)............................................................................ 3.3. United Nations Development Fund for Women (UNIFEM) ..............

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3.4. 3.5. 3.6. 4. 4.1 4.2.

United Nations Fund for International Partnerships (UNFIP) ............ United Nations Office on Drugs and Crime (UNODC)...................... United Nations Office for Project Services (UNOPS)........................ UN Funds and Programmes................................................................ United Nations Children’s Fund (UNICEF) ....................................... United Nations Conference on Trade and Development (UNCTAD) .................................................................................... 4.3. United Nations Development Programme (UNDP) ........................... 4.4. United Nations Environment Programme (UNEP)............................. 4.5. United Nations High Commissioner for Refugees (UNHCR)............ 4.6. United Nations Human Settlements Programme (UN-HABITAT) .... 4.7. United Nations Population Fund (UNFPA)........................................ 4.8. United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA)................................................................ 4.9. World Food Programme (WFP) ......................................................... III UN Specialized Agencies ........................................................................... 1. Food and Agriculture Organization (FAO)......................................... 2. International Civil Aviation Organization (ICAO)............................. 3. International Fund for Agricultural Development (IFAD) ................. 4. International Labour Organization (ILO) ........................................... 5. International Maritime Organization (IMO)....................................... 6. International Monetary Fund (IMF) ................................................... 7. International Telecommunication Union (ITU).................................. 8. United Nations Educational, Scientific and Cultural Organization (UNESCO) ..................................................................................... 9. United Nations Industrial Development Organization (UNIDO) ....... 10. Universal Postal Union (UPU) ........................................................... 11. World Bank......................................................................................... 12. World Health Organization (WHO) ................................................... 13. World Intellectual Property Organization (WIPO)............................. 14. World Meteorological Organization (WMO) ..................................... 15. World Tourism Organization (UNWTO) ........................................... IV Other UN System Bodies............................................................................ 1. International Atomic Energy Agency (IAEA) .................................... 2. World Trade Organization (WTO) .....................................................

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CHAPTER ONE

UN SYSTEM INFORMATION The UN system is complex and made up of a multitude of organizational entities. It includes the UN proper, established under the Charter of the UN. The headquarters is located in New York and main offices in Geneva, Vienna and Nairobi. A number of semi-independent programmes and funds have been established under the authority derived from Article 22 of the Charter to address specific needs such as those related to children, development assistance, refugees, food aid, or the environment.1 Although under the authority of the General Assembly, those organizations have their own governing bodies, budgets and secretariat. Finally, the specialized agencies are provided for in Article 57 of the Charter. The agencies are legally independent international organizations with their own rules, membership, organs and financial resources. Some of the agencies existed before the UN, some were associated with the League of Nations, others were created almost simultaneously with the UN and yet others were created by the UN itself to meet emerging needs. In 2009, the UN budget, excluding the UN specialized agencies, amounted to approximately USD 20 billion, while staff totalled 70,000 people. the USD 20.0 billion, USD 10.0 billion is funded from mandatory assessed contributions from member states, of which USD 2.0 is provided for the UN Secretariat and USD 8.0 billion for peacekeeping operations. An amount of USD 10 billion is provided from voluntary contributions, mainly from developed countries; the major share goes to UN programmes and funds such as UNDP, UNICEF, UNHCR, UNFPA and UNRWA. Of the 70,000 UN staff, 20,000 are with the UN secretariat, 20,000 in peacekeeping operations (in addition to approximately 100,000 military personnel provided by governments to UN peacekeeping missions) and 30,000 at semi-independent programmes and funds. The budget of the UN’s specialized agencies, excluding the World Bank, IMF and WTO, amounted to approximately USD 6.0 billion and staff totalled 20,000. World Bank and IMF account for an administrative budget of approximately USD 3.0 billion and a staff of 15,000. Overall, the total UN system, including the World Bank, IMF and WTO, have an annual budget of USD 29.0 billion and 105,000 staff members. 1. UN Structure The structure of the UN proper can be illustrated by distinguishing between secretariat offices at headquarters, secretariat offices away from headquarters, other UN entities, UN funds and programmes and UN research and training institutes, as listed below. 1 United Nations Children’s Emergency Fund (UNICEF), United Nations Development Fund (UNDP), United Nations High Commissioner for Refugees (UNHCR) and World Food Programme (WFP), United Nations Environment Fund (UNEP).

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1.1. UN Secretariat Offices at Headquarters • Executive Office of the Secretary-General (UN-EOSG) • Office of the Deputy Secretary-General (UN-ODSG) • Department of Economic and Social Affairs (UN-DESA) • Department of Field Support (UN-DFS) • Department for General Assembly and Conference Management (UNDGACM) • Department of Management (UN-DM) • Department of Political Affairs (UN-DPA) • Department of Public Information (UN-DPI) • Office for the Co-ordination of Humanitarian Affairs (UN-OCHA) • Office for Disarmament Affairs (UN-ODA) • Office of the High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States (UN-OHRLLS) • Office of Internal Oversight Services (UN-OIOS) • Office of Legal Affairs (UN-OLA) • Office of Peacekeeping Operations (UN-DPKO) • Office of the Special Advisor on Africa (UN-OSAA) • Office of the United Nations Security Co-ordinator (OSS) • Special Representative of the Secretary-General for Children and Armed Conflict (UN-SRSG/CAC) 1.2. UN Secretariat Offices Away from Headquarters • • • • • • • •

Economic Commission for Africa (UN-ECA) Economic Commission for Europe (UN-ECE) Economic Commission for Latin America (UN-ECLAC) Economic and Social Commission for Asia and the Pacific (UN-ESCAP) Economic and Social Commission for Western Asia (UN-ESCWA) United Nations Office at Geneva (UNOG) United Nations Office at Nairobi (UNON) United Nations Office at Vienna (UNOV)

1.3. Other UN Entities • • • • • • • •

Joint United Nations Programme on HIV/AIDS (UNAIDS) Office of the UN High Commissioner for Human Rights (OHCHR) United Nations Capital Development Fund (UNCDF) United Nations Development Fund for Women (UNIFEM) United Nations Fund for International Partnerships (UNFIP) United Nations Office on Drugs and Crime (UNODC) United Nations Office for Project Services (UNOPS) United Nations Volunteers (UNV)

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1.4. UN Funds and Programmes • United Nations Children’s Fund (UNICEF) • United Nations Conference on Trade and Development (UNCTAD) • United Nations Development Programme (UNDP) • United Nations Environment Programme (UNEP) • United Nations High Commissioner for Refugees (UNHCR) • United Nations Human Settlement Programme (UN-HABITAT) • United Nations Population Fund (UNFPA) • United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) • World Food Programme (WFP) 1.5. UN Research and Training Institutes • United Nations Institute for Disarmament Research (UNIDIR) • United Nations Institute for Social Development (UNRISD) • United Nations Institute for Training and Research (UNITAR) • United Nations International Research and Training Institute for the Advancement of Women (INSTRAW) • United Nations Interregional Crime and Justice Research Institute (UNICRI) • United Nations University (UNU) 2. UN Specialized Agencies The UN specialized agencies are listed below, including the dates the organizations entered into their relationship agreements with the UN. • International Labour Organization (ILO): 14 December 1946 • Food and Agriculture Organization (FAO): 14 December 1946 • United Nations Educational, Scientific and Cultural Organization (UNESCO): 14 December 1946 • International Civil Aviation Organization (ICAO): 13 May 1947 • International Bank for Reconstruction and Development (IBRD): 15 November 1947 • International Monetary Fund (IMF): 15 November 1947 • Universal Postal Union (UPU): 1 July 1948 • World Health Organization (WHO): 10 July 1948 • International Telecommunication Union (ITU): 1 January 1949 • World Meteorological Organization (WMO): 20 December 1951 • International Finance Corporation (IFC): 20 February 1957 • International Maritime Organization (IMO): 13 January 1959 • World Intellectual Property Organization (WIPO): 17 December 1974 • International Fund for Agricultural Development (IFAD): 6 April 1978

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United Nations Industrial Development Organization (UNIDO): 1 January World Tourism Organization (UNWTO): 11 March 2004 3. Other UN System Bodies

In addition to the organizational entities listed above, two other UN system bodies should be mentioned: • •

International Atomic Energy Agency (IAEA) World Trade Organization (WTO)

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CHAPTER TWO UN ENTITIES The following illustration is intended to give a better understanding of the UN system organizations and their involvement in the inter-agency co-ordination mechanism. The complexity of the UN system has already been illustrated in section 1 above. In addition, there are over 150 inter-agency mechanisms, as indicated in Appendix II. One must therefore be selective when providing details on the involvement of UN system entities in the inter-agency co-ordination mechanism. Only those UN system entities that participate in the Chief Executive Board (CEB) mechanism – including its three pillars, the High-level Committee on Programme (HLCP), the High-level Committee on Management (HLCM) and the UN Development Group (UNDG) – will be described. The CEB mechanism is described in Section 2 of Appendix II. The participation of organizational entities in the inter-agency mechanisms is described below in accordance with the list presented in Appendix II. Again, a number of simplifications are introduced. Since membership in the CEB, HLCP and HLCM is identical, they are listed together. Membership in the UNDG differs somewhat and is therefore indicated separately. As well, the list does not separately mention participation in inter-agency working groups and bodies established by the HLCM (section 3 of Appendix II) and by the UNDG (section 5 of Appendix II), which are open to all members of the HLCM and UNDG, respectively. Finally, participation in the UN Communication Groups (UNCGs), described in Section 4.7 of Appendix II, is not listed. UNCGs exist in nearly all the countries where UN Information Centres (UNICs) are based and membership reflects the local engagement of the UN secretariat entities, programmes and funds, and specialized agencies. 1. UN Secretariat Offices at Headquarters 1.1. Executive Office of the Secretary-General (UN-EOSG) Mission: The UN was established to maintain international peace and security, develop friendly relations among nations and promote social progress, better living standards and human rights. Although best known for peacekeeping, peacebuilding, conflict prevention and humanitarian assistance, the UN works on a broad range of fundamental issues, from sustainable development, environment, refugee protection, disaster relief, counter-terrorism, disarmament and non-proliferation, to promoting democracy, human rights, governance, economic and social development and international health, clearing landmines, and expanding food production. Established: 1945; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 107. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) (Chair) Policy Committee

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1.2. Office of the Deputy Secretary-General (UN-ODSG) Mission: The Deputy Secretary-General’s responsibilities, delegated by the Secretary-General, include (i) to assist the Secretary-General in managing the operations of the Secretariat; (ii) to act for the Secretary-General at UN Headquarters in the absence of the Secretary-General and in other cases as may be decided by the SecretaryGeneral; (iii) to support the Secretary-General in ensuring inter-sectoral and interinstitutional coherence of activities and programmes and to support the SecretaryGeneral in elevating the profile and leadership of the UN in the economic and social spheres, including further efforts to strengthen the United Nations as a leading centre for development policy and development assistance; and (iv) to represent the Secretary-General at conferences, official functions and ceremonial and other occasions. Established: 1997; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: part of UN-EOSG; Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Policy Committee 1.3. Department of Economic and Social Affairs (UN-DESA) Mission: UN-DESA promotes and supports international co-operation to achieve development for all, and assists governments in agenda-setting and decision-making on development issues at the global level. UN-DESA provides a broad range of analytical products and policy advice that serve as sources of reference and decisionmaking tools for developed and developing countries, particularly in translating global commitments into national policies and action and in monitoring progress towards the internationally agreed-upon development goals, including the Millennium Development Goals. Specific programme activities include ECOSOC support and coordination, gender issues and advancement of women, social policy and development, sustainable development, statistics, population, global development trends, public administration and development management, sustainable forest management, and financing for development. Established: 1997; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 892. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Peace and Security (ECPS) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG)

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UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 1.4. Department of Political Affairs (UN-DPA) Mission: UN-DPA works to prevent and resolve conflict and promote peace by (i) monitoring and assessing global political developments; (ii) advising the SecretaryGeneral on actions that could enhance the cause of peace; (iii) providing support and guidance to UN peace envoys and political missions in the field; and (iv) serving member states directly through electoral assistance and through the support by DPA staff for the work of the Security Council and other UN bodies. Specific programme activities include conflict prevention, peacebuilding, peacemaking, good offices and mediation, political analysis, and electoral assistance. Established: 1992 through a merger of 10 pre-existing departments and offices; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 314. Participation in UN inter-agency co-ordination mechanisms: Inter-Agency Network on Women and Gender Equality (IANWGE) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) UN Geographic Information Working Group (UNGIWG) 1.5. Office for the Co-ordination of Humanitarian Affairs (UN-OCHA) Mission: UN-OCHA co-ordinates the delivery of humanitarian assistance to the victims of disasters and other emergencies and engages in humanitarian advocacy. The Office (i) manages consolidated appeals and the Central Emergency Response Fund; (ii) works for the protection of civilians; (iii) provides humanitarian information analysis, management and dissemination; (iv) provides field support; (v) manages and supports inter-agency mechanisms; and (vi) provides policy development, including evaluation and lessons learned. Established: December 1991; Type of organization: UN secretariat; Governance: reports to Secretary-General; Main location: New York, USA; Staff: 765. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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1.6. Office of the High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States (UN-OHRLLS) Mission: UN-OHRLLS co-ordinates and monitors the implementation of the Programme of Action for the Least Developed Countries for the Decade 2001–2010, the Almaty Programme of Action: Addressing the Special Needs of Landlocked Developing Countries within a New Global Framework for Transit Transport Co-operation for Landlocked and Transit Developing Countries, and the Mauritius Strategy for the Further Implementation of the Programme of Action for the Sustainable Development of Small Island Developing States. Substantive focal areas are least developed countries, landlocked developing countries and small island developing states. Established: 2001; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 13. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Executive Committee of Economic and Social Affairs (ECESA) 1.7. Office of the Special Adviser on Africa (UN-OSAA) Mission: UN-OSAA co-ordinates global advocacy of and support for the New Partnership for Africa’s Development (NEPAD), an economic development programme of the African Union. NEPAD was adopted in July 2001 and aims to provide an overarching vision and policy framework for accelerating economic co-operation and integration among African countries. The Office aims to ensure that the development of Africa remains one of the priorities of the international community. Established: 2003; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 14. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Peace and Security (ECPS) 1.8. Special Representative of the Secretary-General for Children and Armed Conflict (UN-SRSG/CAC) Mission: UN-SRSG/CAC serves as a moral voice and independent advocate for the protection and well-being of boys and girls affected by armed conflict. The Special Representative (i) works with partners to propose ideas and approaches to enhance the protection of children in armed conflict and to promote a more concerted protection response; (ii) builds awareness and give prominence to the rights and protection of children in armed conflict; (iii) undertakes humanitarian and diplomatic initiatives to facilitate the work of operational actors on the ground with regard to children and armed conflict; and (iv) makes children and armed conflict concerns an integral aspect of peacekeeping and peacebuilding. Established: 1996; Type of organization: UN secretariat; Governance: reports to UN Secretary-General; Main location: New York, USA; Staff: 9.

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Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) 2. UN Secretariat Offices Away from Headquarters 2.1. Economic Commission for Africa (UN-ECA) Mission: UNECA, as the regional arm of the UN in Africa, supports the economic and social development of the countries of the region and foster regional integration through policy analysis to generate knowledge, convening stakeholders to facilitate experience sharing and consensus building, and providing technical assistance to support national capacity-building. Specifically, ECA programme activities include: (i) facilitating economic and social policy analysis for poverty reduction; (ii) fostering sustainable development with an emphasis on the environmental dimension; (iii) strengthening development management and promoting good governance practices; (iv) harnessing information and communication technologies for development; (v) promoting trade and regional integration; and (vi) promoting the advancement of women to ensure gender equality. Established: 1958; Type of organization: UN secretariat; Governance: Commission of 53 member countries; Main location: Addis Ababa, Ethiopia; Staff: 786. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 2.2. Economic Commission for Europe (UN-ECE) Mission: UNECE, as the regional arm of the UN in Europe, Central Asia and North America, brings together countries of the region to work together on economic and sectoral issues. The Commission provides analysis and policy advice and enables policy dialogue, development of regulations and norms, exchange and application of best practices and negotiation of international legal instruments; it also structures technical co-operation for countries with economies in transition. UNECE expertise covers economic co-operation and integration, sustainable energy, environment, housing and land management, population, statistics, timber and forestry, trade and transport. Established: 1947; Type of organization: UN secretariat; Governance: Commission

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of 56 member countries; Main location: Geneva, Switzerland; Staff: 216. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Water Inter-Agency Security Management Network (IASMN) Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) 2.3. Economic Commission for Latin America and the Caribbean (UN-ECLAC) Mission: UNECLAC, as the regional arm of the UN in Latin America and the Caribbean, promotes economic and social development by strengthening co-operation among regional member states. ECLAC combines analytical, normative and capacitybuilding activities including the following main programme activities: (i) linkages with the global economy, integration and regional co-operation; (ii) production and innovation; (iii) macroeconomic policies and growth; (iv) social development and equity; (v) mainstreaming the gender perspective into the regional development process; (vi) population and development; (vii) planning of public administration; (viii) environment and human settlements; (ix) natural resources and infrastructure; and (x) statistics and economic projections. Established: 1948; Type of organization: UN secretariat; Governance: Commission of 42 member countries and 7 associate members; Main location: Santiago, Chile; Staff: 669. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Water Inter-Agency Security Management Network (IASMN) Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 2.4. United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP) Mission: UNESCAP, as the regional arm of the UN in Asia and the Pacific, supports economic and social development with a particular focus on reducing social and economic disparities within and among countries in the region. Specifically, the pro-

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gramme activities include (i) poverty reduction and development; (ii) statistics capacity; (iii) development of Pacific island countries and territories; (iv) trade and investment; (v) transport and tourism; (vi) environment and sustainable development; (vii) information, communication and space technology; and (viii) social development, including persistent and emerging issues. Established: 1947; Type of organization: UN secretariat; Governance: Commission of 53 member countries and 9 associate members; Main location: Bangkok, Thailand; Staff: 572. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Water Inter-Agency Security Management Network (IASMN) Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 2.5. United Nations Economic and Social Commission for Western Asia (UN-ESCWA) Mission: UN-ESCWA, as the regional arm of the UN in Western Asia, supports the economic and social development of the region. Special consideration is given to countries with special needs (least developed countries, countries emerging from conflict situations), women and youth issues. Specifically, the programme activities include (i) sustainable management of natural resources (water/energy); (ii) information and communication technologies; (iii) trade, transport and finance; (iv) integrated social policies; (v) gender mainstreaming and advancement of women; (vi) statistics; (vii) post-conflict recovery, rehabilitation and development; (viii) economic analysis and forecasting; and (ix) productivity and competitiveness of small and medium-scale enterprises. Established: 1974; Type of organization: UN secretariat; Governance: Commission of 13 member countries; Main location: Beirut, Lebanon; Staff: 350. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Water Inter-Agency Security Management Network (IASMN) Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) UN Evaluation Group (UNEG)

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Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 3. Other UN Entities 3.1. Joint UN Programme on HIV/AIDS (UNAIDS) Mission: UNAIDS leads and supports the response aimed at preventing the transmission of HIV. It works to provide care and support, reduce the vulnerability of individuals and communities to AIDS, and alleviate the impact of the epidemic. UNAIDS brings together the efforts and resources of ten UN system cosponsor organizations, include UNHCR, UNICEF, WFP, UNDP, UNFPA, UNODC, ILO, UNESCO, WHO and the World Bank. Specifically, UNAIDS (i) provides leadership for establishing the global AIDS agenda and galvanizing political commitment; (ii) generates information and analysis on trends in the epidemic; (iii) harmonizes evaluation approaches to generate reliable information on the epidemic; (iv) generates involvement by civil society, people living with HIV, and groups at elevated risk of HIV infection; and (iv) mobilizes resources to meet priority needs in the response to the epidemic. Established: 1996; Type of organization: other UN entity; Governance: Programme Co-ordination Board of 22 member countries elected by ECOSOC; Main location: Geneva, Switzerland; Staff: 376. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) Executive Committee of Economic and Social Affairs (ECESA) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 3.2. United Nations Office of the High Commissioner for Human Rights (OHCHR) Mission: OHCHR works for the protection of all human rights for all people; to help empower people to realize their rights; and to assist those responsible for upholding such rights in ensuring that they are implemented. OHCHR (i) gives priority to addressing the most pressing human rights violations, both acute and chronic, particularly those that put life in imminent peril; (ii) focuses attention on those who are at risk; and (iii) pays equal attention to civil, cultural, economic, political, and social rights, including the right to development. Specifically, programme activities include supporting: (i) the Human Rights Council and treaty bodies; (ii) thematic fact-finding procedures (special rapporteurs); and (iii) human rights research and analysis (human rights and development, rule of law, democracy, economic and social issues, anti-

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discrimination, indigenous peoples and minorities). Established: 1993; Type of organization: other UN entity; Governance: Human Rights Council of 47 member countries elected by the UN General Assembly; Main location: Geneva, Switzerland; Staff: 603. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) Policy Committee UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Global Compact UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 3.3. United Nations Development Fund for Women (UNIFEM) Mission: UNIFEM works with countries to formulate and implement laws and policies that eliminate gender discrimination and promote gender equality. It also aims to transform institutions to be more accountable to gender equality and women’s rights, strengthen the capacity and voice of women’s rights advocates and help change harmful and discriminatory practices. The Fund provides financial and technical assistance to promote women’s rights, political participation and economic security. UNIFEM focuses on following key areas: (i) reducing women’s poverty and exclusion; (ii) ending violence against women; (iii) reversing the spread of HIV/AIDS among women and girls; and (iv) achieving gender equality in democratic governance in times of peace and war. Established: 1984; Type of organization: other UN entity; Governance: UNDP/UNFPA Executive Board of 36 member countries appointed by ECOSOC; Main location: New York, USA; Staff: 232. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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3.4. United Nations Fund for International Partnerships (UNFIP) Mission: UNFIP serves as the interface in the partnership between the UN system and the UN Foundation – the public charity responsible for administering Ted Turner’s USD 1 billion contribution in support of UN causes. Through UNFIP, funds mobilized by the UN Foundation are channelled to the UN system to implement projects focused on children’s health, women and population, environment, and peace, security and human rights. Established: 1998; Type of organization: other UN entity; Governance: Advisory Board of 9 high-level UN representatives and outside experts from the fields of philanthropy and academia designated by the UN Secretary-General; Main location: New York, USA; Staff: 14. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) UN Evaluation Group (UNEG) 3.5. United Nations Office on Drugs and Crime (UNODC) Mission: UNODC supports member states in the prevention of illicit drugs, crime and terrorism. Specifically, UNODC (i) assists states with the ratification and implementation of international treaties, development of domestic legislation on drugs, crime and terrorism, and provision of secretariat and substantive services to treatybased and governing bodies; (ii) carries out research and analytical work to increase knowledge and understanding of drugs and crime issues and expand the evidence base for policy and operational decisions; and (iii) implements field-based technical cooperation projects to enhance the capacity of member states to counteract illicit drugs, crime and terrorism Established: 1997; Type of organization: other UN body; Governance: reports to UN Secretary-General; Main location: Vienna, Austria; Staff: 381. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) UN Global Compact UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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3.6. United Nations Office for Project Services (UNOPS) Mission: UNOPS is a management service provider including (i) operational management and administrative services for the implementation of projects or components of projects funded by or through other UN organizations or by national institutions; (ii) overall project management; (iii) loan administration and supervision on behalf of international financial institutions and global funds; (iv) management services for multilateral, bilateral and beneficiary-financed projects; and (v) procurement services. Established: December 1994; Type of organization: other UN body; Governance: UNDP/UNFPA Executive Board of 36 member countries appointed by ECOSOC; Main location: Copenhagen, Denmark; Staff: 942. Participation in UN inter-agency co-ordination mechanisms: UN Development Group (UNDG) Inter-Agency Security Management Network (IASMN) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4. UN Funds and Programmes 4.1. United Nations Children’s Fund (UNICEF) Mission: UNICEF advocates for the protection of children’s rights, to help meet their basic needs and to expand their opportunities to reach their full potential. The Fund strives to establish children’s rights as enduring ethical principles and international standards of behaviour towards children. UNICEF mobilizes political will and material resources to help countries, particularly developing countries, in the following priority areas: (i) young children’s survival and development; (ii) basic education and gender equality; (iii) HIV/AIDS and children; (iv) child protection from violence, exploitation and abuse; and (v) policy advocacy and partnership for children’s rights. Established: 1946; Type of organization: UN fund and programme; Governance: Executive Board of 36 member countries appointed by ECOSOC; Main location: New York, USA; Staff: 10,033. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS)

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Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.2. United Nations Conference on Trade and Development (UNCTAD) Mission: UNCTAD is the UN focal point for trade, investment and development issues. It works as a laboratory for ideas and provides on-the-ground assistance to developing countries in areas relating to trade, investment, finance, technology and sustainable development. UNCTAD helps developing countries realize development gains from trade, investment, and development opportunities, and participate fully in the world economy. Its main work includes (i) research and analysis (publications, conferences, training and outreach); (ii) consensus-building (through its intergovernmental mechanisms and other consultative processes); and (iii) technical co-operation (in such areas as ICT, trade facilitation, customs computerization, debt management, commodity information, biotrade and training). Established: 1964; Type of organization: UN fund and programme; Governance: Ministerial Conference of 192 member countries and Trade and Development Board open to all UNCTAD member countries; Main location: Geneva, Switzerland; Staff: 507. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.3. United Nations Development Programme (UNDP) Mission: UNDP is the main body responsible for co-ordinating UN development work. Specifically, UNDP manages the Resident Co-ordinator system and supports national capacity building with the aim of (i) reaching the Millennium Development

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Goals (MDGs); (ii) development of country strategies and poverty reduction policies; (iii) democratic governance (elections, strengthening of democratic institutions); (iv) crisis prevention and recovery; (v) energy and environment (national capacity building); (vi) HIV/AIDS; and (vii) gender mainstreaming (with UNIFEM as special partner). Established: 1966; Type of organization: UN fund and programme; Governance: UNDP/UNFPA Executive Board of 36 member countries appointed by ECOSOC; Main location: New York; USA; Staff: 6,887. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) (Chair) Collaborative Partnership on Forests (CPF) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) UN Global Compact UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.4. United Nations Environment Programme (UNEP) Mission: UNEP provides leadership and encourage partnership in caring for the environment by inspiring, informing, and enabling nations and peoples to improve their quality of life without compromising that of future generations. Specifically, the programme (i) analyses the state of the global environment and assesses environmental trends, provides policy advice and early warning information on environmental threats, and promotes international co-operation based on scientific and technical capabilities; (ii) furthers the development of international environmental law aiming at sustainable development, including the development of linkages among international

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environmental conventions; and (iii) advances the implementation of international norms and policies and fosters compliance with environmental principles and international agreements. Established: 1972; Type of organization: UN fund and programme; Governance: Governing Council of 58 member countries elected by the General Assembly; Main location: Nairobi, Kenya; Staff: 1,112. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Collaborative Partnership on Forests (CPF) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee of Economic and Social Affairs (ECESA) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Global Compact UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.5. United Nations High Commissioner for Refugees (UNHCR) Mission: UNHCR provides international protection to refugees and seeks durable solutions to their plight. Protection includes preventing the involuntary return of a refugee to a country where he or she may have a well-founded fear of persecution and ensuring that international norms are followed in the treatment of refugees by host countries. In seeking durable solutions to refugees’ problems, UNHCR helps those who wish to go home to do so once circumstances permit and assists them to reintegrate into their home communities. Where this is not feasible, it seeks other solutions, whether in the countries where the refugees have already found asylum or in third countries. Emergency and other material assistance is provided, in collaboration with many different partners, in the form of food, shelter, medical aid, education and other social services. The work of UNHCR is humanitarian and non-political. Established: 1951; Type of organization: UN fund and programme; Governance: Executive Committee of 76 member countries elected by ECOSOC; Main location: Geneva, Switzerland; Staff: 6,808.

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Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) United Nations Development Group (UNDG) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Water Environment Management Group (EMG) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.6. United Nations Human Settlement Programme (UN-HABITAT) Mission: UN-HABITAT promotes sustainable urbanization and the achievement of adequate shelter for all by promoting global exchanges of information, policy formulation, institutional development and infrastructure investments. Specifically, UNHABITAT focuses on (i) monitoring improvements of human settlements worldwide; (ii) pro-poor gender-sensitive shelter policies and strategies; (iii) slum prevention and upgrading; (iv) improving urban governance, including youth and gender issues; (v) reducing urban poverty; (vi) managing disaster mitigation and post-conflict rehabilitation; (vii) balanced rural-urban linkages of development policies and strategies; (viii) sustainable land-use planning and security of land tenure; (ix) urban infrastructure, transport, energy and communications; and (x) pro-poor gender-sensitive and integrated water and sanitation in urban areas. Established: 1979; Type of organization: UN fund and programme; Governance: Governing Council of 58 member countries elected by ECOSOC; Main location: Nairobi, Kenya; Staff: 380. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs UN-Energy UN-Oceans UN-Water Environment Management Group (EMG)

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Executive Committee of Economic and Social Affairs (ECESA) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.7. United Nations Population Fund (UNFPA) Mission: UNFPA is an international development agency that provides assistance in the field of population. Specifically, UNFPA supports (i) the use of population dynamics analysis to guide increased investments in gender equality, youth development, reproductive health and HIV/AIDS prevention for improved quality of life and sustainable development and poverty reduction; (ii) universal access to reproductive health by 2015 and universal access to comprehensive HIV prevention by 2010 for improved quality of life; and (iii) the advancement of gender equality and the empowerment of women and adolescent girls to exercise their human rights, particularly their reproductive rights, and live free of discrimination and violence. Three cross-cutting needs are addressed, namely mainstreaming young people’s concerns, emergencies and humanitarian assistance, and special attention for marginalized and excluded populations. Established: 1969; Type of organization: UN fund and programme; Governance: UNDP/UNFPA Executive Board of 36 member countries appointed by ECOSOC; Main location: New York, USA; Staff: 1,956. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.8. United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) Mission: UNRWA provides education, health, relief and social services, psychosocial services and access to microfinance and micro-enterprise opportunities for more than 4.5 million Palestine refugees living in Jordan, Lebanon, the Syrian Arab Repub-

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lic, and the Occupied Palestinian Territory. The primary beneficiaries of UNRWA’s services are the most vulnerable groups including children, women, the aged and the disabled. Palestine refugees are defined as people whose normal residence was in Palestine for a minimum of two years before the 1948 conflict and who, because of the Arab-Israeli hostilities, lost their homes and means of livelihood. Their descendants are registered as refugees through the male line. Established: 1949; Type of organization: UN fund and programme; Governance: Advisory Commission of 21 member countries including those countries whose contribution to the Agency had exceeded an annual average of USD 5 million over the past three years; Main location: Gaza and Amman, Jordan; Staff: 192. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) Executive Committee on Humanitarian Affairs (ECHA) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4.9. World Food Programme (WFP) Mission: WFP provides food aid primarily to low-income, food-deficit countries to assist in the implementation of economic and social development projects, and to meet the relief needs of victims of natural and other disasters. Specifically, WFP activities include: (i) emergency food aid; (ii) food for education and training programmes; (iii) food assistance for post-conflict/post-disaster transition and recovery; (iv) development programmes for vulnerable groups; (v) HIV/AIDS with focus on food and nutrition component; (vi) gender equity in food assistance; (vii) nutrition programmes; and (viii) capacity building in early warning of food crises and food-based safety nets. Established: 1961; Type of organization: UN fund and programme; Governance: Executive Board of 36 member countries elected by ECOSOC and FAO Council; Main location: Rome, Italy; Staff: 3,783. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) Environment Management Group (EMG) Executive Committee on Humanitarian Affairs (ECHA) Inter-Agency Security Management Network (IASMN) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS)

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Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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CHAPTER THREE

UN SPECIALIZED AGENCIES 1. Food and Agriculture Organization of the UN (FAO) Mission: FAO’s mission is to (i) raise levels of nutrition and standards of living; (ii) secure improvements in food production and distribution; (iii) better the conditions of rural populations, and thus contribute toward an expanding world economy and ensure freedom from hunger. Specific programmes include (i) food security, including food safety and nutrition; (ii) agricultural trade and rural development; (iii) sustainable management of natural resources; (iv) international agreements for a regulatory framework; (v) support for actions against plant and animal pests and diseases, particularly those of trans-boundary nature; (vi) capacity building; (vii) support to research and technology transfer; and (viii) the specific needs of disadvantaged groups in agricultural development. Established: 1945; Type of organization: specialized agency; Governance: Conference of 188 member countries; Main location: Rome, Italy; Staff: 3,309. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Collaborative Partnership on Forests (CPF) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee on Humanitarian Affairs (ECHA) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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2. International Civil Aviation Organization (ICAO) Mission: ICAO is charged with developing the principles and techniques of international air navigation, and fostering the planning and development of international air transport to ensure the safe and orderly growth of international civil aviation throughout the world. Specific programmes include (i) enhance global civil aviation safety; (ii) enhance global civil aviation security; (iii) protect the environment and minimize the adverse effect of global civil aviation; (iv) maintain the continuity of aviation operations; and (v) strengthen laws governing international civil aviation. Established: 1944; Type of organization: specialized agency; Governance: Assembly of 190 member countries; Main location: Montreal, Canada; Staff: 687. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 3. International Fund for Agricultural Development (IFAD) Mission: IFAD’s role is to mobilize additional resources to be made available in concessional terms for agricultural development in developing member states. The projects and programmes to be financed will primarily be those designed to introduce, expand or improve food production systems and to strengthen related policies and institutions within the framework of national priorities and strategies. IFAD takes into account the need to increase food production in the poorest food-deficit countries, the potential for increasing food production in other developing countries and the importance of improving the nutritional level and living conditions of the poorest populations in developing countries. The Fund’s major target group, irrespective of the stage of economic development of the country, is the small and landless farmers. IFAD’s major objective is to ensure that the benefits of its projects go to the poorer sections. Established: 1978; Type of Organization: specialized agency; Governance: Governing Council of 165 member countries; Main location: Rome, Italy; Staff: 513. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN)

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UN-Water Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 4. International Labour Organization (ILO) Mission: The ILO is devoted to advancing opportunities for women and men to obtain decent and productive work in conditions of freedom, equity, security and human dignity. Its main aims are to (i) promote rights at work; (ii) encourage decent employment opportunities; (iii) enhance social protection and (iv) strengthen dialogue in handling work-related issues. In promoting social justice and internationally recognized human and labour rights, the organization continues to pursue its founding credo that labour peace is essential to prosperity. ILO helps advance the creation of decent jobs and the kinds of economic and working conditions that give working people and businesspeople a stake in lasting peace, prosperity and progress. ILO is the only tripartite UN agency that includes governments, employers and workers in its governance structure and decision-making bodies. Established: 1919; Type of organization: specialized agency; Governance: International Labour Conference of 181 member countries with tripartite delegations (governments, employers and workers); Main location: Geneva, Switzerland; Staff: 2,291. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) UN-Oceans Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Global Compact UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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5. International Maritime Organization (IMO) Mission: IMO is responsible for the safety of life at sea and protection of the marine environment through prevention of pollution of the sea caused by ships and other craft. It facilitates co-operation among governments to achieve the highest practicable standards of maritime safety and security, and efficiency in navigation. It deals with legal matters connected with international shipping, including liability and compensation regimes, as well as with facilitation of international maritime traffic. It is also responsible for providing technical assistance in maritime matters to developing countries. Established: 1948; Type of organization: specialized agency; Governance: Assembly of 166 member countries; Main location: London, UK; Staff: 303. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN-Oceans Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 6. International Monetary Fund (IMF) Mission: IMF works to foster global monetary co-operation, secure financial stability, facilitate international trade, promote high employment and sustainable economic growth, and reduce poverty. Specifically, the purposes of the Fund are to (i) promote international monetary co-operation through consultation and collaboration; (ii) facilitate the expansion and balanced growth of international trade, and thereby contribute to the promotion and maintenance of high levels of employment and real income; (iii) promote exchange stability and orderly exchange arrangements; (iv) assist in the establishment of a multilateral system of payments and the elimination of foreign exchange restrictions; and (v) assist members by means of the temporary provision of financial resources to correct maladjustments in the balance of payments. Established: 1944; Type of organization: specialized agency; Governance: Board of Governors from each of the 185 member countries; Main location: Washington, DC, USA; Staff: 3,500. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG)

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UN Counter-Terrorism Implementation Task Force (CTITF) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 7. International Telecommunication Union (ITU) Mission: ITU brings together governments and industry to co-ordinate the establishment and operation of global telecommunication networks and services. Its purposes are (i) to maintain and extend international co-operation for the improvement and rational use of telecommunications of all kinds; (ii) to promote the development of technical facilities and their most efficient operation with a view to improving the efficiency of telecommunications services, increasing their usefulness and making them, so far as possible, generally available to the public; and (iii) to harmonize the actions of nations in the attainment of those common ends. Established: 1865; Type of organization: specialized agency; Governance: Plenipotentiary Conference of 191 member countries; Main location: Geneva, Switzerland; Staff: 742. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 8. United Nations Educational, Scientific and Cultural Organization (UNESCO) Mission: UNESCO’s mission is to contribute to peace and security by promoting collaboration among the nations through education, science and culture in order to further universal respect for justice, for the rule of law, and for the human rights and fundamental freedoms which are affirmed for the peoples of the world, without distinction of race, sex, language, or religion, by the Charter of the United Nations. Established: 1945; Type of organization: specialized agency; Governance: General Conference of 191 member countries and 6 associate members; Main location: Paris, France; Staff: 2,121. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG)

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Committee for the Co-ordination of Statistical Activities (CCSA) Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 9. United Nations Industrial Development Organization (UNIDO) Mission: UNIDO is the central co-ordinating body for industrial activities within the UN system; it promotes industrial development and co-operation at the global, regional, national and sectoral levels. The organization aims to relieve poverty by fostering productivity growth by strengthening industrial capacities and promoting cleaner and more sustainable industrial development through the provision of technical cooperation, and the generation and dissemination of knowledge. Its activities focus geographically on Least Developed Countries (LDCs), particularly in Africa, and sectorally on small and medium-sized agro-based industries. The three thematic priorities are poverty reduction through productive activities, trade capacity building, and environment and energy. Established: 1985; Type of organization: specialized agency; Governance: General Conference of 171 member countries; Main location: Vienna, Austria; Staff: 671. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Global Compact

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Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 10. Universal Postal Union (UPU) Mission: UPU’s role is to secure the organization and improvement of the postal services and to promote in this sphere the development of international collaboration and undertake, as far as possible, technical assistance in postal matters requested by member countries. Specifically, UPU (i) supports the free circulation of postal items over a single postal territory composed of interconnected networks; (ii) encourages the adoption of fair common standards and the use of technology; (iii) ensures cooperation and interaction among stakeholders; (iv) promotes effective technical cooperation; and (v) ensures the satisfaction of customers’ changing needs. To this end, the member countries constitute a single postal territory. Established: 1874; Type of organization: specialized agency: Governance: Universal Postal Congress of 190 member countries; Main location: Bern, Switzerland; Staff: 177. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 11. World Bank Mission: The World Bank’s mission is to help developing countries and their people reach their goals by working with partners to alleviate poverty. To do that, the World Bank concentrates on building the climate for investment, jobs and sustainable growth, so that economies will grow, and by investing in and empowering poor people to participate in development. The World Bank Group includes the International Bank for Reconstruction and Development (IBRD), International Development Association (IDA), International Finance Corporation (IFC) and Multilateral Investment Guarantee Agency (MIGA). Established: 1944; Type of organization: specialized agency; Governance: Board of Governors from each of the 184 member countries; Main location: Washington, DC, USA; Staff: 11,000. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Collaborative Partnership on Forests (CPF) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative

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Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Executive Committee on Peace and Security (ECPS) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 12. World Health Organization (WHO) Mission: WHO’s objective is the attainment by all peoples of the highest possible level of health, whereby health is a state of complete physical, mental and social wellbeing and not merely the absence of disease or infirmity. Specifically, WMO (i) is the directing and co-ordinating authority on international health work; (ii) develops and sets international norms and standards in the field of health; (iii) enhances global health security through maintenance of a comprehensive outbreak alert and response mechanism; (iv) stimulates and advances work to prevent and control epidemic, endemic and other infectious diseases; (v) responds to the increasing burden of noncommunicable diseases, including mental health; and (vi) strengthens the health system. Established: 1948; Type of organization: specialized agency; Governance: World Health Assembly of 192 member countries and 2 associate members; Main location: Geneva, Switzerland; Staff: 6,315. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Inter-Agency Standing Committee (IASC) for humanitarian affairs Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans UN-Water

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Environment Management Group (EMG) Executive Committee on Humanitarian Affairs (ECHA) Inter-Agency Security Management Network (IASMN) Joint United Nations Programme on HIV and AIDS (UNAIDS) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) UN Non-Governmental Liaison Service (NGLS) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 13. World Intellectual Property Organization (WIPO) Mission: WIPO exists to promote the protection of intellectual property throughout the world through co-operation among states and, where appropriate, in collaboration with any other international organization. Specifically, WIPO must (i) harmonize national intellectual property legislation and procedures; (ii) exchange intellectual property information; (iii) provide legal and technical assistance to developing and other countries; and (iv) facilitate the resolution of private intellectual property disputes. Established: 1883; Type of organization: specialized agency; Governance: General Assembly of 183 member countries; Main location: Geneva, Switzerland; Staff: 942. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) HLCP/CEB Joint Crisis Initiative Inter-Agency Network on Women and Gender Equality (IANWGE) Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 14. World Meteorological Organization (WMO) Mission: WMO is the UN system’s authoritative voice on the state and behaviour of the Earth’s atmosphere, its interaction with the oceans, the weather and climate it produces, and the resulting distribution of water resources. Specifically, WMO (i) facilitates worldwide co-operation in meteorological observations, forecasting and early warning; (ii) promotes atmospheric research including atmospheric composition; (iii) applies weather, climate, water and environmental information to aviation, shipping, water problems and agriculture; (iv) supports capacity building in developing countries, particularly LDCs, for enhanced meteorological and hydrological services; (v) contributes to natural disaster prevention and mitigation including multi-hazard early warning.

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Established: 1950; predecessor in 1873; Type of organization: specialized agency; Governance: World Meteorological Congress of 182 member countries and 6 territories; Main location: Geneva, Switzerland; Staff: 287. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) UN-Energy UN-Oceans UN-Water Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) International Strategy for Disaster Reduction (ISDR) UN Evaluation Group (UNEG) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 15. World Tourism Organization (UNWTO) Mission: UNWTO promotes the development of responsible, sustainable and universally accessible tourism, with the aim of contributing to economic development, international understanding, peace, prosperity and universal respect for, and observance of, human rights and fundamental freedoms. Acting as an umbrella organization for world tourism, UNWTO plays a catalytic role in promoting technology transfers and international co-operation and in stimulating and developing public-private sector partnerships with a view to ensuring that member countries, tourist destinations and businesses maximize the positive effects of tourism, while at the same time minimizing its negative social or environmental impacts. Established: 1975; Type of organization: specialized agency; Governance: General Assembly of 157 member countries; Main location: Madrid, Spain; Staff: 96. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) UN Development Group (UNDG) Committee for the Co-ordination of Statistical Activities (CCSA) UN-Oceans UN-Water Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

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CHAPTER THREE

OTHER UN SYSTEM BODIES 1. International Atomic Energy Agency (IAEA) Mission: IAEA’s mission is to accelerate and enlarge the contribution of atomic energy to peace, health and prosperity throughout the world. Specifically, it seeks to act as a catalyst for the development and transfer of peaceful nuclear technologies, build and maintain a global nuclear safety regime, and assist in global efforts to prevent the proliferation of nuclear weapons. Specifically, IAEA (i) encourages and assists research in atomic energy for peaceful purposes worldwide; (ii) acts as an intermediary in the supply of materials, services, equipment and facilities; (iii) fosters the exchange of scientific and technical information; (iv) encourage the exchange and training of scientists and experts; (v) establishes and administers safeguards against the misuse of aid provided by IAEA; and (vi) establishes safety standards. Established: 1957; Type of organization: other UN system body; Governance: General Conference of 140 member countries; Main location: Vienna, Austria; Staff: 2,147. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) Inter-Agency Network on Women and Gender Equality (IANWGE) Standing Committee on Nutrition of the UN System (SCN) UN-Energy UN-Oceans Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) UN Evaluation Group (UNEG) UN Counter-Terrorism Implementation Task Force (CTITF) UN Geographic Information Working Group (UNGIWG) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) 2. World Trade Organization (WTO) Mission: The WTO deals with the rules of trade between nations. The objective is to help trade flow smoothly, freely, fairly and predictably, thus contributing to a conducive environment for economic growth. It does this by (i) administering trade agreements; (ii) acting as a forum for multilateral trade negotiations; (iii) settling trade disputes among its members; (iv) reviewing national trade policies; and (v) assisting developing countries with trade policy issues (through technical assistance and capacity building programmes).

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Established: 1995; Type of organization: other UN system body; Governance: Ministerial Conference of 149 member countries; Main location: Geneva, Switzerland; Staff: 140. Participation in UN inter-agency co-ordination mechanisms: UN Chief Executive Board (CEB) and its High-level Committees on Management and Programme (HLCM, HLCP) HLCP/CEB Joint Crisis Initiative Environment Management Group (EMG) Inter-Agency Security Management Network (IASMN) Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS)

APPENDIX TWO

UN INTER-AGENCY CO-ORDINATION MECHANISMS TABLE OF CONTENTS

I Evolution of Inter-Agency Co-ordination.................................................... II Chief Executive Board (CEB) ..................................................................... 1. High-Level Committee on Management (HLCM) ................................ 2. High-Level Committee on Programmes (HLCP) .................................. 3. UN Development Group (UNDG)......................................................... III Inter-Agency Working Groups and Bodies Established by CEB/HLCM.... 1. Finance and Budget Network................................................................. 2. Human Resources Network ................................................................... 3. Information, Communication and Technology Network ....................... 4. Legal Network ....................................................................................... 5. Procurement Network ............................................................................ IV Inter-Agency Working Groups and Bodies Established by CEB/HLCP and Successor Bodies .............................................................................. 1. Collaborative Partnership on Forests (CPF) .......................................... 2. Committee for the Co-ordination of Statistical Activities (CCSA) ....... 3. Inter-Agency Network on Women and Gender Equality (IANWGE)... 4. Inter-Agency Standing Committee (IASC) for Humanitarian Affairs... 5. Standing Committee on Nutrition of the UN System (SCN)................. 6. UN Communications Group (UNCG) ................................................... 7. UN-Energy............................................................................................. 8. UN-Oceans ............................................................................................ 9. UN-Water .............................................................................................. V Inter-Agency Working Groups and Bodies Established by CEB/UNDG.... 1. Fiduciary Management Oversight Group (FMOG) ............................... 2. UNDG-ECHA Working Group on Transition (WG-T) ......................... 3. Working Group on Country Office Business Operations (WGCOBO) .............................................................................................. 4. Working Group on Joint Funding, Financial and Audit Issues (WGJFFAI) ............................................................................................... 5. Working Group on Programming Issues (WG-PI) ................................ 6. Working Group on Resident Co-ordinator System Issues (WG-RCSI).

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Page VI Inter-Agency Bodies Established in Response to Intergovernmental Mandates ................................................................................................. 1. Environment Management Group (EMG) ............................................. 2. Executive Committee of Economic and Social Affairs (ECESA) ......... 3. Executive Committee on Humanitarian Affairs (ECHA) ...................... 4. Executive Committee on Peace and Security (ECPS) ........................... 5. Inter-Agency Security Management Network (IASMN)....................... 6. International Strategy for Disaster Reduction (ISDR) ........................... 7. Joint UN Programme on HIV and AIDS (UNAIDS) ............................ 8. Policy Committee .................................................................................. 9. UN Counter-Terrorism Implementation Task Force (CTITF)............... 10. UN Evaluation Group (UNEG) ............................................................. 11. UN Geographic Information Working Group (UNGIWG) ................... 12. UN Global Compact .............................................................................. 13. UN Non-Governmental Liaison Service (NGLS).................................. 14. Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) ........................................................

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CHAPTER ONE

EVOLUTION OF INTER-AGENCY CO-ORDINATION With the creation of the UN system of independent organizations, agreements were established which set out in general terms how they were to co-operate. In order to institutionalize this co-operation, in 1946 the Economic and Social Council (ECOSOC) established the Advisory Committee on Co-ordination (ACC) to implement the relationship agreements. It consisted of 10 members, including the SecretaryGeneral of the UN as chairperson and the executive heads of nine specialized agencies. The World Bank and the International Monetary Fund (IMF) remained outside its framework. A system of subsidiary committees was built up which included two main bodies. First, the Consultative Committee on Administrative Questions (CCAQ) provided a meeting forum for chiefs of the administrations, with CCAQ (PER) dealing with personnel matters and CCAQ (FB) dealing with financial and budgetary questions. Second, the Consultative Committee on Programme and Operational Questions (CCPOQ), supported by a number of subcommittees, dealt with statistics, demographic estimates, nutrition, drug control and operational activities. The committees met twice a year and CCAQ and CCPOQ were supported by a jointly financed secretariat in Geneva, while other subsidiary bodies are supported by units within participating organizations. The World Trade Organization (WTO) left the arrangement with the intention of developing more favourable employment conditions. Indeed, increased coherence was perceived as a limiting factor. The IAEA suggested that the common system had developed into a rigidly controlled monolith and requested the introduction of greater flexibility. The ACC expanded its work beyond its original mandate to include the coordination of the programmes of the various UN organizations. One of the most urgent tasks during the initial years was to bring about greater coherence in salaries, allowances and pensions between the participating organizations known as the ‘UN common system’. In the following years, the CEB increasingly issued joint statements on the implementation of General Assembly resolutions and considered how to follow up on global conferences and different thematic themes. The ACC became larger and more heterogeneous, reaching 30 participants by 2009, compared to the initial 10 members. Indeed, it was suggested by some executive heads that participation should be limited to the UN and the specialized agencies since inter-agency co-operation might be leading to over-centralization in favour of the UN itself. There was little danger of this, however. As a forum of independent agencies, the ACC could not easily take a position detrimental to the interests of any agency or in opposition to the wishes of its executive head, as had already been recognized back in 1966. Where problems exist, the inter-agency reports tend to conceal differences among organizations. The first major readjustment of the ACC framework was initiated in 1977 by the General Assembly which stated that the ACC machinery should be streamlined and

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reduced to a minimum. In cases where the discharge of permanent functions necessitated the retention of continuing machinery, maximum use should be made of flexible, ad hoc arrangements. In a review in 1987 prompted by the General Assembly, it was acknowledged that the ACC machinery had not fulfilled the original expectations. The executive heads felt the burden of having to examine too many questions of varying degrees of importance and of a very diverse nature. Some critics noted the proliferation of ‘coordinocrats’ who had little impact on the duplication in the system.1 As of 1990, the ACC moved to focus more on emerging issues and develop actionoriented proposals. In response, the subsidiary machinery and working methods were adjusted accordingly. Adjustments included a streamlined agenda for the ACC, with two to three substantive issues apart from those dealing with administrative and personnel questions. Discussions in the ACC were based on documents prepared either by the subsidiary bodies or by one or two lead agencies. As for the frequency of ACC meetings, two yearly sessions were held instead of one. With regard to organizational arrangement, all subsidiary bodies were to report to the ACC through the Organizational Committee (OC) or the standing committees. A significant change to the set-up came in 1996 with the addition of the Inter-Agency Committee on Women and Gender Equality (IACWGE) and the Inter-Agency Committee on Sustainable Development (IACSD). In 1997, the ACC approved the arrangements for inter-agency follow-up to the World Food Summit, by establishing the ACC Network on Rural Development and Food Security, managed by FAO and IFAD. In 1997, executive heads initiated improvements to the functioning and streamlining of the ACC machinery. Authority was delegated to standing committees, only selected policy issues were submitted to the ACC, and better linkages between the secretariats of inter-agency machinery was established. Efforts to reduce the number of meetings encountered resistance. For example, CCAQ (PER) argued that the potential for such reduction was limited due to the unique role of the Committee as a forum for staff representatives and its consultative relationship with the ICSC. A number of avenues were explored on how to cope with the numerous meetings. CCAQ suggested that sessions could be organized into sub-groups of specialists working in parallel, reporting to the plenary of the full committee. It was further suggested that some inter-agency consultations could take place without the need for inter-city travel and formal meetings. In 1998, the secretariat support system for the ACC was reorganized as part of the UN’s overall reform effort. This included the establishment of the Office of InterAgency Affairs (OIAA) in New York to service the ACC and the discontinuation of the previous arrangement of providing support from the Executive Office of the Secretary-General. In 2000, OIAA and the jointly funded secretariat for CCAQ and CCPOQ in Geneva were merged into a single secretariat with offices in New York and Geneva. In July 2000, a major reform was proposed of the ACC and its sub-machinery. The issues addressed had already been noted in previous years, namely the need to estab1 Francesco Mezzalama, Khalil Issa Othman, Louis-Dominique Ouedraogo, Review of the Administrative Committee on Co-ordination and its Machinery, Joint Inspection Unit, Geneva, JIU/REP/99/1, Geneva, 1999, para. 14.

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lish a focused agenda of issues, to enhance delegation from ACC to the sub-machinery and, most importantly, to reduce the layers of meetings by replacing the standing committees by task forces of experts. The new arrangement was to break with the ACC’s hierarchical structure and replace routine meetings based on largely repetitive agendas with short, agenda-driven meetings. In October 2000, the ACC machinery was replaced by the Chief Executive Board for Co-ordination (CEB) with the High-level Committee on Management (HLCM) and the High-level Committee on Programme (HLCP). In terms of its composition and the scope of its functions, the HLCM corresponded broadly to CCAQ and the HLCP to CCPOQ. The HLCM and HLCP were to take decisions on behalf of the CEB, which would be concerned only with the most important policy matters. Under the new arrangement, a committee member was designated to subsidiary bodies to facilitate communication, known as ‘cross-over’, and joint meetings of the HLCM and HLCP were held to address common concerns. For example, in 2006, two joint meetings focused on cross-cutting issues, including system-wide coherence, results-based management, gender mainstreaming and the UN System Staff College. Despite the focus on streamlining, the CEB was soon seen to be slowly rebuilding the previous ACC machinery. In 2003, the HLCM reactivated the Financial and Budget (FB) Network with periodic face-to-face meetings and a focus not only on accounting but also on budgeting and programming issues. Other examples are the establishment of the interagency working group of UN medical directors and of an informal network of the treasurers of the UN system. In addition to the replacement of the ACC by the CEB, inter-agency co-operation was in flux. Back in late 1997, the UN had implemented a major reform to improve co-ordination. A Policy Committee was established to advise the Secretary-General. In addition, executive committees were set up around five core areas to co-ordinate the work of departments, programmes and funds. This also included the UN Development Group (UNDG), chaired by the Administrator of the UNDP, which supports the over 100 country office operations. Concern was expressed that the creation of the UN Policy and Executive Committees/UNDG created a certain degree of confusion and duplication with the CEB machinery. ECOSOC called for enhanced interaction between the various committees. The review undertaken by the CEB in 2007 led to two important outcomes. First, it resulted in the empowerment of the Board’s subsidiary structure, affording the HLCP and HLCM a higher level of autonomy. Second, it led to the integration of the UNDG into the CEB framework, as the third pillar alongside HLCP and HLCM. As a result of the restructuring, the Chairmen and Vice-Chairmen of the three CEB pillars initiated regular meetings to align their work programmes and respective responsibilities. Whereas the CEB was to bring together the various major inter-agency mechanisms, the HLCP was to prepare CEB discussions and co-ordinate the implementation of decision on a limited number of cross-cutting policy issues of system-wide concern. Issues that have system-wide, inter-agency implications are co-ordinated through the HLCM, such as the harmonization of systems and procedures across the system, while the UNDG focuses on coherence at the country level and provides guidance and oversight over country operations. A fundamental aspect of this approach was to bring the normative and operational work close together. A stocktaking of the management-related initia-

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tives was undertaken by the HLCM and UNDG in 2008. Although their work programmes often covered the same functional areas, no real overlap was identified. The CEB’s spring session in 2008 was the first meeting under the new structure. The restructuring of the CEB had not addressed the overlap and complementarities with the UN Policy Committee. Closer co-operation between the two bodies was practised in preparation for the climate change consultations from 2007 to 2009. The Policy Committee prepared the Secretary-General’s attendance at the UNCCC conferences on behalf of the UN system, while the HLCP and CEB worked towards reaching agreement on co-ordination within the system. Regular consultations between the Policy Committee and CEB secretariats were instituted in April 2008. Inter-agency co-ordination is often associated with a proliferation of co-ordination mechanisms, meetings and reports. Streamlining has been one of the recurring themes of almost all reform initiatives. New changes are envisaged at the end of 2009. The CEB aims to increasingly establish ‘thematic clusters’ at the normative and operational levels involving the UN entities whose mandates deal with a specific crosscutting topic, such as climate change, post-conflict rehabilitation, migrations, trade, gender equality, or development financing. Other proposals include the transformation of the CEB Annual Overview Report from its descriptive approach to an analytical document on the state of the UN system, including responses to major issues on the international agenda. What does inter-agency co-operation cost? It is difficult to calculate a total cost, but a number of expenditure categories can be identified. First, there is the jointly funded CEB secretariat located in New York and Geneva, which accounts for approximately USD 3 million per annum. Support services provided by organizations hosting interagency committees and task forces are more difficult to estimate. This also refers to staff and travel costs for participating in inter-agency meetings. The total cost is likely to be a substantial amount that needs to be taken into account when assessing the contribution of the UN inter-agency system. In the following sections, details are provided on the various inter-agency coordination bodies, including, in particular, information on the mandate and membership of each mechanism. Finally, an inventory of additional UN inter-agency mechanisms is provided.

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CHAPTER TWO

CHIEF EXECUTIVE BOARD (CEB) The CEB brings together on a regular basis the executive heads of the organizations of the UN system, under the chairmanship of the Secretary-General of the UN. The CEB aims to further co-ordination and co-operation on a whole range of substantive and management issues facing UN system organizations. In addition to its regular reviews of contemporary political issues and major concerns facing the UN system, on the basis of recommendations from the bodies reporting to it, the CEB approves policy statements on behalf of the UN system as a whole. The CEB includes the following 30 members and observers: FAO, IAEA, ICAO, IFAD, ILO, IMF, IMO, ITU, OHCHR, UN-EOSG (chair), UNAIDS, UNCTAD, UNDP, UNEP, UNESCO, UNFPA, UNHABITAT, UNHCR, UNICEF, UNIDO, UNODC, UNRWA, UNWTO, UPU, WFP, WHO, WIPO, WMO, World Bank, and WTO. Three committees report to the CEB, namely the High-level Committee on Programme (HLCP), the High-level Committee on Management (HLCM) and the UN Development Group (UNDG). Each of those bodies has, in turn, developed a subsidiary machinery of regular and ad hoc bodies on the substantive and managerial aspects of inter-agency co-ordination. The committee structure is supported by a CEB secretariat located in New York and Geneva. 1. High-Level Committee on Management (HLCM) The HLCM reports to the CEB and is responsible for the harmonization of business practices across the UN system, including general management issues, and ensuring overall management coherence. The Committee is composed of the most senior administrative managers of the organizations of the system. Specific issues include the promotion and co-ordination of management reforms. It examines accountability mechanisms with a view to identifying best practices and supports the introduction of International Public Sector Accounting Standards (IPSAS). The HLCM is also responsible for maintaining dialogue with staff representatives (FICSA and CCISUA) on concerns of a system-wide nature and interacts with the ICSC and JIU. This includes, for example, the identification of topics for the JIU’s programme of work and working with the JIU in the preparation of several of its reports. The HLCM meets twice a year. It establishes networks in specific areas which include the following specialized groups: Finance and Budget Network; Human Resources Network; Information, Communication and Technology Network; Legal Network; and Procurement Network. The membership of the HLCM is equivalent to that of the CEB. 2. High-Level Committee on Programme (HLCP) The HLCP reports to the CEB and is responsible for the promotion of global policy and programme coherence. The Committee is composed of the most senior pro-

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gramme managers of the system’s organizations. Specific issues covered by the Committee include inter-agency dialogue on the development and launching of new programme initiatives, development of common policy tools issues and responding to the challenges facing the UN system and the global community. The Committee also supports the integrated and co-ordinated implementation and follow-up of major UN conferences and summits, and contributes to the oversight of co-ordination and effective programme implementation at the country level. It is responsible for facilitating discussions on the implications of the reform process within the system and identifying best practices. The HLCP holds two regular sessions, on in spring and on in fall of each year. The following specialized groups operate within the framework of the HLCP: CPF, CCSA, HLCP/CEB Joint Crisis Initiative, IANWGE, IASC for humanitarian affairs, SCN, UNCG, UN-Energy, UN-Oceans, and UN-Water. The membership of the HLCP is equivalent to that of the CEB. In addition, the HLCP established a ‘lead agency’ approach involving time-bound groups to, for example, prepare draft action plans, such as the Working Group on Climate Change or the Cluster Group on Eradication of Poverty. Lead agencies also dedicate resources to pursuing the development of a system-wide approach. 3. UN Development Group (UNDG) The UNDG reports to the CEB and brings together the 36 UN offices, specialized agencies, funds and programmes and UN departments that are active in development at the country level. The UNDG provides guidance on business operations and oversees the Resident Co-ordinator (RC) system. It supports the ‘Delivering as One’ pilot country project and monitors operational activities in the Triennial Comprehensive Policy Review (TCPR) and the achievement of the MDGs. The UNDG was initially established in 1997 as part of the UN reform to create closer integration of Funds and Programmes. Initially, only four UN programmes participated (UNDP, UNICEF, UNFPA and WFP). Additional members and observers include FAO, IFAD, ILO, ITU, OHCHR, UN-ODSG, UN-OHRLLS, UN regional commissions (UNECA, UNECE, UNECLAC, UNESCAP, UN-ESCWA), UNAIDS, UNCTAD, UN-DESA, UN-DPI, UNEP, UNESCO, UNFIP, UN-HABITAT, UNHCR, UNIDO, UNIFEM, UN-OCHA, UNODC, UNOPS, UN-OSAA, UNSRSG/CAC, UNWTO, WHO, WIPO, WMO, and World Bank. The UNDG is chaired by the Administrator of the UNDP and meets at least three times yearly. The UN development system is active with 136 country teams and programmes in 180 countries. UN organizations conduct activities worth over USD 16 billion each year for development activities. In countries in crisis or emerging from conflict, the UN development system provides support in tandem with UN political, peacekeeping, peacebuilding and humanitarian actors. The UNDG has also established an Advisory Group of 13 UNDG members which provides the UNDG Chair with advice and guidance on managing the operational dimensions of the UNDG and the RC System. The group convenes at the level of heads of agencies and at the Assistant Secretary-General/Assistant Director-General level. In addition, the UNDG works through the following six standing inter-agency working groups: FMOG, WG-RCSI, UNDG-ECHA Working Group on Transition, WG-

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COBO, WG-JFFAI, and WG-PI. Moreover, the Group operates through a multitude working groups and task team at the headquarters and country levels, including, for example, the UNDG Toolkit Advisory Committee meeting, the MDG Steering Committee, MDTF Steering Committee at the country level, and the WG-PI task team on Persons with Disabilities. The UNDG is supported by the UN Development Operations Co-ordination Office (DOCO), which links UNDG discussions at headquarters and the work of the UN development system at the country level. DOCO works together with the RC System, the UN Country Teams (UNCT) and the six UN Regional Manager Teams to prepare system-wide agreements on how to make country programmes more effective and better aligned with national priorities. DOCO develops and introduces procedures for country office operations in the administrative areas. It is administered and funded by UNDP.

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CHAPTER THREE

INTER-AGENCY WORKING GROUPS AND BODIES ESTABLISHED BY CEB/HLCM2 1. Finance and Budget Network The FB Network brings together the parties responsible for the financial management of the organizations of the UN system. The Network provides an opportunity to exchange information between senior financial managers and is responsible for providing advice and strategic guidance in respect of issues of common concern to UN system organizations as a whole. These include results-based budgeting, international accounting standards, auditing and oversight mechanisms, financial reporting, programme support costs, fraud prevention, and others. It is also responsible for providing guidance in respect of jointly financed activities of the UN system, including security management. The FB Network meets twice yearly and reports to the HLCM. 2. Human Resources Network The HR Network has two major roles: (i) to provide strategic advice to the Chief Executives of the system on human resource management developments, ensuring best practices across the system; and (ii) to prepare, on behalf of the CEB, input and exchange with the International Civil Service Commission (ICSC), which since 1975 has been responsible for the regulation and co-ordination of the conditions of service of the UN common system of organizations. The Network meets twice a year, usually in conjunction with meetings of the ICSC, and reports to the HLCM. Major issues of concern include the reform of pay and benefits systems, enhanced recruitment based on core competencies, the work-family agenda and inter-agency mobility 3. Information, Communication and Technology Network The ICT Network works towards a system-wide approach to leveraging advanced technology to support the goals of the UN and brings together the information and communication technology (ICT) leadership of organizations of the UN System. The Network functions as a forum to co-ordinate system-wide ICT policy and practices. Its recent activities include support to the HLCM’s business practices initiatives including development of common ICT standards, a common directory for the UN system and the harmonization of ERP operating and management practices. The ICT Network of the HLCM, in conjunction with the information and communications technology tasking group of the UNDG, took an important step towards greater system-wide knowl2 Introductory Remarks: (a) Inventory of Inter-Agency Mechanisms, CEB document 2007/HLCPXIV/CRP.1, 11 September 2007.

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edge-sharing during the reporting period. While all organizations maintain internal contact directories, staff members throughout the UN system have previously had difficulties finding contact information on colleagues in other organizations. In 2008, a pilot project among several organizations successfully demonstrated the project’s feasibility; currently, more than 35 UN and related organizations participate in the ICT Network. 4. Legal Network The Legal Network is composed of three sub-groups: the sub-network of Legal Advisers of specialized and related agencies, which has 23 members; the sub-network of Legal Liaison Officers, which brings together the chiefs or senior legal officers of offices away from headquarters, funds and programmes, regional commissions, ad hoc tribunals and treaty bodies institutionally linked to the UN, and has approximately 26 members; and the sub-network including the chiefs or senior legal officers serving field missions led either by the department of peacekeeping operations (DPKO), the department of field support (DFS) or the department of political affairs (DPA), which has approximately 30 members. 5. Procurement Network The HLCM’s Procurement Network was established in 2008. The Network supports the simplification and harmonization of procurement practices and collaborative procurement arrangements. By sharing information and knowledge, it promotes procurement opportunities to potential suppliers from developing countries, as well as those from countries with economies in transition. The harmonization of procurement processes in support of field offices, with a particular focus on the project offices in Delivering as One pilot countries, is a central concern. Other initiatives include the development of the UN Global Marketplace, which is used by more than 2,500 UN procurement practitioners and hosts information on approximately 13,000 potential suppliers. The Vendor Eligibility Project aims to establish a common framework for dealing with unethical vendors in the UN system. The Network has established a number of Working Groups on Harmonization, Sustainable Procurement, Vendor Management, Supplier Access, and Professionalization. In addition to UN agencies from the CEB network, a number of other international organizations attend, bringing the total number of members to 92.

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CHAPTER FOUR

INTER-AGENCY WORKING GROUPS AND BODIES ESTABLISHED BY CEB/HLCP AND SUCCESSOR BODIES 1. Collaborative Partnership on Forests (CPF) The CPF is a partnership of 14 major forest-related international organizations, institutions and convention secretariats. It was established in April 2001, on the recommendation of the ECOSOC. The CPF supports the work of the intergovernmental policy forum the UN Forum on Forests (UNFF) and its member countries and fosters increased co-operation and co-ordination on forest management, conservation and sustainable development. This is done by sharing experiences, undertaking joint initiatives and working together in mobilize resources. CPF initiatives include forest and climate change; forest degradation; forest finance; Global Forest Information Service; and Global Forest Expert Panels (GFEP). The CPF is chaired by the FAO and is serviced by a secretariat located in UNDESA which also serves as the UNFF secretariat. The CPF has the following members: CBD, CIFOR, FAO, GEF, ICRAF, ITTO, IUCN, IUFRO, UNCCD, UNDP, UNEP, UNFCCC, UNFF, and World Bank. 2. Committee for the Co-ordination of Statistical Activities (CCSA) The CCSA was established in September 2002 under the new CEB arrangement, replacing the previous inter-agency mechanism. It has the following objectives: (i) to promote co-ordination, integration and complementarity among the statistical programmes of the international organizations, including the avoidance of duplication and reduction in reporting burdens on member states; (ii) to support co-ordinated preparations and follow-up of statistical issues in intergovernmental meetings, including the Statistical Commission; (iii) to co-ordinate technical co-operation in statistics; (iv) to support co-ordination of work on methodological development and promote harmonization of the methodologies in statistics; and (v) to foster good practices in the structuring and programming of statistical activities in the international organizations and focus on emerging issues. The CCSA has the following members: FAO, ILO, IMF, ITU, UNCTAD, UNDP, UNECE, UNEP, UNESCAP, UNESCO, UN-ESCWA, UNFPA, UN-HABITAT, UNICEF, UNIDO, UNODC, UNPD, UNWTO, WHO, and World Bank. 3. Inter-Agency Network on Women and Gender Equality (IANWGE) Established in 2001 under the new CEB arrangement, IANWGE replaced the previous inter-agency mechanism which had been in place since 1996. The network supports and monitors the implementation of (i) the Beijing Platform for Action adopted at the Fourth World Conference on Women and the outcome of the 23rd UN General As-

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sembly special session Women 2000: Gender Equality, Development and Peace for the Twenty-first Century (Beijing+5); and (ii) gender-related recommendations emanating from other recent UN General Assembly special sessions, conferences and summits, especially by ensuring effective co-operation and co-ordination throughout the UN system. The Network also monitors the mainstreaming of a gender perspective in the programmatic, normative and operational work of the UN system. IANWGE meets annually in New York prior to the meetings of the Commission on the Status of Women (CSW) to review the activities of the different parts of the system, provide feedback to agencies, and ensure relevant follow-up action by all members. The meetings also engage in policy discussions of emerging challenges. The position of the Network is presented in the Chair of IANWGE’s opening statement to the CSW. IANWGE works through a system of ad hoc task forces and through informal intersessional meetings which include the following: Violence against Women; Gender Equality and the Millennium Development Goals; Gender and Information and Communication Technologies; Women, Peace and Security; Database Activities including WomenWatch; Gender and Trade; Gender and Water; Indigenous Women; and Gender Mainstreaming in Evaluation, Monitoring and Programme Reporting. The Secretariat of IANWGE is based in New York. IANWGE includes as members the gender focal points of the following entities: FAO, IAEA, IFAD, ILO, IMF, INSTRAW, IOM, ITC (UNCTAD/WTO), ITU, OHCHR, UNAIDS, UNCTAD, UN-DAW, UNDDA, UN-DESA, UNDP, UN-DPA, UN-DPI, UN-DPKO, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UNESCO, UN-ESCWA, UNFPA, UN-HABITAT, UNHCR, UNICEF, UNIDO, UNIFEM, UN-NGLS, UN-OCHA, UNODC, UN-OIOS, UN-OLA, UN-OSAGI, UN-Population Division, UN-RCNYO, UN-Statistics Division, UNU, UNV, WFP, WHO, WIPO, and World Bank. 4. Inter-Agency Standing Committee (IASC) for Humanitarian Affairs The IASC was established in June 1992 as the primary mechanism for inter-agency co-ordination; it was to act on policy issues related to humanitarian assistance, and to formulate a coherent and timely UN response to humanitarian emergencies. It sought to provide a degree of manageability in what had become a crowded and complex system leading to inefficiencies, gaps and duplication of efforts. Its objectives are (i) to allocate responsibilities among agencies in humanitarian programmes; (ii) to identify areas where gaps in mandates or a lack of operational capacity exists; (iii) to resolve disputes or disagreements between humanitarian agencies; (iv) to advocate common humanitarian principles to parties outside the IASC; (v) to develop and agree on system-wide humanitarian policies; and (vi) to develop and agree on a common ethical framework for all humanitarian activities. The IASC has the following members: FAO, UNDP, UNFPA, UN-HABITAT, UNHCR, UNICEF, UN-OCHA, WFP, and WHO. In addition, the following standing invitees participate: American Council for Voluntary International Action (InterAction), ICRC, ICVA, IFRC, IOM, OHCHR, RSG on Human Rights of IDPs, SCHR, and World Bank. The Committee is chaired by the UN Emergency Relief Co-ordinator

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and works closely with the UN Executive Committee for Humanitarian Affairs (ECHA). The IASC Working Group (IASC WG) meets four to six times per year and is the mechanism for making policy within the humanitarian community. Its members are at the Director of Emergency level. The IASC works through sub-working groups (SWGs), which are established for an unlimited duration: SWG on the Consolidated Appeals Process; SWG on Emergency Telecommunications; SWG on Gender and Humanitarian Action; and SWG on Preparedness and Contingency Planning. In addition, the IASC establishes task forces with a limited timeframe to complete specific tasks, such as Task Force on HIV in Humanitarian Situations and Task Force on Information Management. Reference Groups have an advisory role to the Working Group and cover a specific task with unlimited duration such as: Reference Group on Human Rights and Humanitarian Action; and Reference Group on Mental Health and Psychosocial Support in Emergency Settings. Finally, the Contact Group on Good Humanitarian Donorship establishes a link between the IASC and the donor community. The IASC was established by General Assembly resolution A/RES/46/182 as a central element in a larger effort to revamp the UN’s humanitarian co-ordination machinery, which also included the establishment of the position of Emergency Relief Coordinator (ERC), the Consolidated Appeals Process (CAP), the Central Emergency Revolving Fund (CERF) and the Department of Humanitarian Affairs (later UNOCHA). .

5. Standing Committee on Nutrition of the UN System (SCN) The SCN was established in 2001 following the reform of the ACC, essentially by renaming the previous inter-agency body which had been in existence since 1977. The SCN promote co-operation and harmonizes policies and programmes to achieve global nutritional aims and end malnutrition. Specifically, it documents lessons learned on nutrition in development and in emergency situations; provides a co-ordinating mechanisms for harmonizing actions in addressing malnutrition; strengthens planning, programming and budgeting to deliver interventions; monitors nutrition trends; facilitates the integration of nutrition into MDG-related activities at the country level through the UN co-ordination system; mainstreams human rights approaches into its work; and identifies scientific and operational gaps. SCN working groups include the following: Breastfeeding and Complementary Feeding; Capacity Development in Food and Nutrition; Household Food Security; Micronutrients; Nutrition in Emergencies; Nutrition, Ethics and Human Rights; Nutrition and HIV/AIDS; Nutrition of School-Age Children; and Nutrition Throughout the Life Cycle. The SCN is tripartite in nature, with representatives from three groups: the UN agencies, including other international and regional development finance institutions, and intergovernmental bodies; the Bilateral Partners, including representatives from both high income and low income countries; and civil society, including international non-governmental organizations (NGOs), academic institutions and other civil society representatives. The SCN secretariat is hosted by the WHO in Geneva. The SCN has the following members: ADB, FAO, IAEA, IFAD, IFPRI, ILO, UN, UNAIDS,

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UNDP, UNECA, UNEP, UNESCO, UNFPA, UNHCR, UNICEF, UNRISD, UNU, WFP, WHO, and World Bank. 6. UN Communications Group (UNCG) The UNCG was formed in January 2002 as a flexible and substance-driven mechanism for inter-agency co-ordination in the field of public information and communications, replacing the Joint UN Information Committee (JUNIC). The UNCG’s aim is to increase the media profile of UN activities at the national level. It is the common communications platform of the UN system. It provides leadership in communications for the UNCTs, identifying new and creative ways to show how UN programmes are delivering results and promoting a coherent image of the UN. The UNCG comprises the information offices of the UN system, including the UN Secretariat, specialized agencies, programmes and funds. Communications Groups have been formed in nearly all of the countries where UN Information Centres (UNICs) are based. UNICs serve as secretariat of the Group and in many cases chair it. 7. UN-Energy Established in June 2004, UN-Energy promotes coherence in the UN system’s multidisciplinary response to the World Summit on Sustainable Development (WSSD) by acting as a gateway for information sharing; maintaining an overview of ongoing and planned work within the system and building/strengthening synergies among independent initiatives; and promoting joint programming, harmonization and co-operation in the energy-related activities of the organizations of the system. Secretariat services are provided by the UN Department of Economic and Social Affairs (UN-DESA). UN-Energy has the following members: CEB Secretariat, FAO, IAEA, INSTRAW, UNCTAD, UN-DESA, UNDP, UNECA, UNECE, UNECLAC, UNESCAP, UNESCO, UN-ESCWA, UNFCCC, UN-HABITAT, UNIDO, WHO, WMO, and World Bank. 8. UN-Oceans Established in 2003, UN-Oceans supports co-operation and co-ordination in ocean and coastal activities within the UN system. The group reviews existing programmes, identifies emerging issues and defines joint actions, undertaken as part of its contribution to the implementation of the UN Convention on the Law of the Sea (UNCLOS), Agenda 21 and the Johannesburg Plan of Implementation. UN-Ocean works through task forces, co-ordinated by a lead institution, which are open to the participation of NGOs and other international stakeholders and include the following: Task Force on Establishing a Regular Process for Global Assessment of the Marine Environment; Task Force on Biodiversity in Areas Beyond National Jurisdiction; and Task Force on Marine Protected Areas and Other Area-based Management Tools.

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The task forces also collaborate with other co-ordination mechanisms such as the Global International Water Assessment (GIWA), the Joint Group of Experts on the Scientific Aspects of Marine Environment Protection (GESAMP) and the Global Oceans Observing System (GOOS). The implementing secretariat is the Intergovernmental Oceanographic Commission of UNESCO and the organizing secretariat the UN Division for Ocean Affairs and the Law of the Sea of the UN Office of Legal Affairs (UN-DOALOS). UN-Oceans has the following members: CBD, FAO, IAEA, IHO, ILO, IMO, ISA, OECD, Ramsar, UNCTAD, UN-DESA, UN-DOALOS (secretariat), UNDP, UNEP, UNESCO, UNFCCC, UN-HABITAT, UNIDO, UNU, UNWTO, WHO, WMO, and World Bank. 9. UN-Water UN-Water was established in 2003 as the inter-agency mechanism for follow-up of the WSSD water-related decisions and the MDGs concerning water. UN-Water supports coherence and co-ordination among UN entities dealing with aspects of freshwater and sanitation. Focus areas include integrated water resource management; drinking water, sanitation and health; water scarcity; pollution; transboundary waters; climate change and disaster risk management; gender and water; financing and valuation; and capacity building. The Group identifies strategic issues, priorities for system-wide action, gaps in current activities, proposing collaborative initiatives to address them and helping UN-Water members work more effectively together in areas where potential overlaps exist. This is done by providing information, policy briefs and other communication materials for policy-makers and managers, building the knowledge base on water issues through efficient monitoring and reporting systems and providing a platform for system-wide discussions. UN-Water includes the following four specific programmes, each with its own work plan, budget and an executing agency co-ordinating their implementation: World Water Assessment Programme (WWAP); WHO/UNICEF Joint Monitoring Programme on Water Supply and Sanitation (JMP); UN-Water Decade Programme on Advocacy and Communication (UNW-DPAC); and UN-Water Decade Programme on Capacity Development (UNW-DPC). UN-Water activities are also carried out through time-bound task forces established to focus on specific areas of interest or emerging issues. Current task forces include the following: Task Force on Climate Change; Task Force on Gender and Water; Task Force on Transboundary Waters; Reporting Task; and Task Force on Sanitation. Senior programme managers from UN-Water member agencies meet twice a year. An elected chair and vice chair, which rotate among UN agencies, usually every two years, represent UN-Water at international conferences and oversee the implementation of its work programme. Flagship reports include the World Water Development Report, WHO/UNICEF Joint Monitoring Programme Reports and the Global Annual Assessment on Sanitation and Drinking Water. A permanent secretariat, hosted by UN-DESA in New York, provides administrative, technical and logistical support. UN-Water collaborates closely with the UN Secretary-General’s Advisory Board on Water and Sanitation (UNSGAB). UN-Water members are from the UN System while its partners represent civil society and various

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non-governmental organizations as listed below. UN-Water includes the following members: CBD Secretariat, FAO, IAEA, IFAD, UNCCD Secretariat, UNCTAD, UNDESA, UNDP, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UNESCO, UNESCWA, UNFCCC, UN-HABITAT, UNHCR, UNICEF, UNIDO, UNISDR, UNU, UNWTO, WHO, WMO, and World Bank. In addition, following partners are associated: Global Compact, Global Water Partnership, IAH, IAHS, ICID, IUCN, IWA, IWMI, Private Federation of Private Water Operators (Aqua Fed), PSI, Ramsar, SIWI, UNSGAB, WBCSD, WSSCC, WWC, and WWF.

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CHAPTER FIVE

INTER-AGENCY WORKING GROUPS AND BODIES ESTABLISHED BY CEB/UNDG 1. Fiduciary Management Oversight Group (FMOG) This Group provides oversight and guidance on fiduciary, legal, and assurance issues regarding Multi-Donor Trust Funds. It also provides guidance on fund management and financial accountability in joint programmes. Requests for guidance can be addressed to the Group by MDTFs’ Steering Committees at the country level, administrative agents and participating agencies. If consensus between agencies cannot be reached at FMOG or in politically sensitive cases, the issue is transferred to the Assistant Secretary-General (ASG) Group of the MDTF, which convenes at the Assistant Secretary-General/Assistant Director-General level. 2. UNDG-ECHA Working Group on Transition (WG-T) The WG-T brings the development, political, peacebuilding, peacekeeping, and humanitarian actors of the broader UN system together to develop policies, guidelines and methodological approaches to support countries in post-conflict transition settings. Issues covered include development of transition strategy, framework on conflict analysis, tool kit on post-conflict needs assessments and transitional results frameworks, UNDG/World Bank guidance on transitional results matrix, and guidance on transitional financing and pooled fund modalities. The working group includes UNDG members and UN Secretariat offices, including UN-OCHA, UN-DFS, UN-DPA, and UN-DPKO, to develop policies, guidelines and methodological approaches to support countries in post-crisis transition. It is co-chaired by UN-OCHA and DOCO. 3. Working Group on Country Office Business Operations (WG-COBO) This Group harmonizes and simplifies country-level business operations in areas such as human resources, information and communications technology, procurement, common premises, common services, and roll-out of change management support. 4. Working Group on Joint Funding, Financial and Audit Issues (WG-JFFAI) This Group focuses on enhancing the effectiveness and harmonization of joint funding, finance, and auditing at the country level.

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5. Working Group on Programming Issues (WG-PI) The WG-PI develops policies, guidelines and tools to improve the quality and effectiveness of UN country team programme collaboration. The working group harmonizes and simplifies joint programming instruments such as the UN Development Assistance Framework (UNDAF) and related programming documents and procedures; supports the UN System’s progress toward aid effectiveness commitments; and advises country teams on how to incorporate key principles related to results-based management, capacity development, human rights-based approaches, gender equality, and environmental sustainability into the UN programme framework at the country level. 6. Working Group on Resident Co-ordinator System Issues (WG-RCSI) This Group develops tools and guidance focused on strengthening the skills, effectiveness and accountability of RCs and the managers and staff of UNCTs. It also works to improve the relationships between RCs and UNCT members.

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CHAPTER SIX

INTER-AGENCY BODIES ESTABLISHED IN RESPONSE TO INTERGOVERNMENTAL MANDATES 1. Environment Management Group (EMG) The EMG was established in 1999 to co-ordinate issues in the field of environment and human settlements and to enhance coherent and co-ordinated action within the UN system. Group members share information about their respective plans and activities and consult one another about proposed new initiatives with a view to developing an agreed-upon set of priorities and instituting measures. The EMG is designed around an issue-management and problem-solving approach. They convey their views on certain issues to intergovernmental forums and processes (UNEP and UN-HABITAT Governing Councils, Commission on Sustainable Development, Conferences of Parties of MEAs). Issues under consideration by the group include co-operation towards a climate-neutral UN, sustainable procurement, sustainable land use and support of the implementation of the 2010 biodiversity targets and beyond. EMG membership includes UN agencies, secretariats of MEAs, Bretton Woods Institutions and the World Trade Organization. The Group also seeks the involvement, particularly through its Issue Management Groups, of international non-governmental organizations. Through the EMG’s partnership initiatives, links with other UN interagency frameworks, as well as civil society and the private sector, are being established. The Group is chaired by the Executive Director of UNEP and the EMG Secretariat is hosted by UNEP and located in Geneva, Switzerland. The EMG has the following members: CBD, CITES, CMS, FAO, GEF, IAEA, ICAO, IFAD, ILO, IMO, ISDR, ITC, ITU, OHCHR, Ramsar, SBC, UNCCD, UNCTAD, UN-DESA/DSD, UNDP, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UNESCO, UN-ESCWA, UNFCCC, UNFPA, UN-HABITAT, UNHCR, UNICEF, UNIDO, UNITAR, UNOCHA, UNU, UNWTO, UPU, WFP, WHO, WIPO, WMO, World Bank, and WTO. 2. Executive Committee of Economic and Social Affairs (ECESA) ECESA was established as part of the reform process launched by the UN SecretaryGeneral in early 1997. It is a co-ordination vehicle for the UN to ensure greater coherence in economic and social affairs and thereby also reduce duplication of efforts. ECESA aims to achieve a better balance between and to strengthen the linkages among the UN’s normative, analytical and operational work. The heads of the UN entities that make up ECESA’s membership consult on policy issues, work programmes, and administrative matters of collective concern. Through the following thematic clusters, operating within the framework of the internationally agreed development goals, ECESA brings together programme managers to facilitate joint planning and decisionmaking in the areas of international trade; macro-economics and finance; sustainable development and energy; social development; advancement of women; governance

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and institution building; science, technology and productive sectors; statistics; and population. The Under-Secretary-General for Economic and Social Affairs serves as convenor. ECESA has the following members: INSTRAW, ITC, JIU, OHCHR, OPCW, UNOSAA, UNAIDS, UNCDF, UNCTAD, UN-DESA, UNDP, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UN-ESCWA, UN-HABITAT, UNICEF, UNITAR, UN-OCHA, UNODC, UN-OHRLLS, UN-OIOS, UNRISD, and UNU. 3. Executive Committee on Humanitarian Affairs (ECHA) ECHA aims to enhance the co-ordination of policy and operational matters in the humanitarian sectors as the ‘UN-only’ equivalent of the IASC. ECHA collaborates to develop the principles, goals and institutional arrangements for a coherent and effective UN response to a particular country in crisis. The Committee is chaired by the Emergency Relief Co-ordinator (who is also the executive head of UN-OCHA), as is the IASC. It is convened monthly in New York to prepare options for decision-making and recommendations on operational issues. The Committee was established as part of the 1997 UN reform process, and its membership comprises the following UN agencies, programmes and departments: FAO, OHCHR, UNDP, UN-DPA, UN-DPI, UNDPKO, UNHCR, UNICEF, UN-OCHA, UN-SRSG/CAC, UNRWA, WFP, and WHO. ECHA membership does not include entities such as the Red Cross or NGOs. Instead, the presence of the UN-DPA and UN-DPKO adds political and military dimensions to the humanitarian consultations. The ECHA secretariat is provided by UN-OCHA, which also serves the IASC. The joint ECHA/IASC arrangement ensures that parallel discussions in the two Committees are based on a common understanding of the problems and on effective decisionmaking processes. The Secretariat interfaces with other inter-agency bodies, notably UNDGO and ECPS, to strengthen the linkage among humanitarian, political and developmental actors. 4. Executive Committee on Peace and Security (ECPS) ECPS was established in 1997, as part of a UN reform process. Its mandate is broadly defined as the highest policy development and management instrument within the UN Secretariat on critical, cross-cutting issues of peace and security. Its primary purpose is to submit policy papers to the Secretary-General on matters that merit collaborative recommendations. ECPS has the following members: OHCHR, and Special Adviser of the Secretary-General on Gender Issues and Advancement of Women, UN-ODA, UNDESA, UNDP, UN-DPA, UN-DPI, UN-DPKO, UNHCR, UNICEF, UN-OCHA, UNODC, UNOG, UN-OLA, UN-OSAA, UN-SRSG/CAC, UNRWA, and World Bank.

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5. Inter-agency Security Management Network (IASMN)

IASMN monitors the implementation of UN security management policies, practices and procedures by all actors of the UN system, including the related programme budgets. It reports and makes recommendations thereon to the HLCM. IASMN is chaired by the UN Under-Secretary-General for Safety and Security. It meets twice a year. It is composed of the senior managers who have managerial oversight of the security function within the following bodies: (i) all organizations that are members of the CEB; (ii) organizations that have concluded a Memorandum of Understanding with the UN for the purposes of participating in the UN security management system; (iii) any organization which has a specific mandate for management of safety and security of UN staff, personnel and premises or which is directly involved in the co-ordination, delivery and support of UN activities in the field especially during emergencies and in high-risk environments; (iv) any other organization invited by the Under-SecretaryGeneral for Safety and Security as the Chair as an observer; and (v) UN Staff Federations as observers. In order to facilitate its work, IASMN appointed a Steering Group that considers and proposes the agenda for IASMN as well as the draft documents. Between annual meetings, working group meetings are convened among interested organizations to discuss specific security issues. 6. International Strategy for Disaster Reduction (ISDR) The ISDR System supports nations and communities to implement the Hyogo Framework for Action through widened participation of governments and organizations in the ISDR; raising the profile of disaster reduction in the priorities and programmes of organizations; and building a stronger, more systematic and coherent international effort to support national disaster reduction efforts. The main co-ordination mechanisms of the ISDR system are: Global Platform for Disaster Risk Reduction; ISDR Management Oversight Board; ISDR Inter-agency Reference Group; and ISDR secretariat. The Global Platform for Disaster Risk Reduction is the principal body for the development of disaster reduction policy. It brings together member states and international partner organizations which have a demonstrated track record of strong engagement in disaster risk reduction. The platform assesses the progress made in implementation of the Hyogo Framework for Action, enhances awareness of disaster risk reduction, shares experiences and learns from good practices, identifies remaining gaps, and identifies actions to accelerate national and local implementation. The Global Platform is convened every two years and chaired by the UN Under-SecretaryGeneral (USG) for Humanitarian Affairs. Between sessions of the Global Platform, Regional Platforms are convened both to address issues of particular concern to the regions and to prepare for sessions of the Global Platform. The ISDR Management Oversight Board (MOB) supports the Chair of the Global Platform in providing UN system-wide leadership and high-level advocacy for disaster risk reduction as well as in ensuring coherence within the international system, in particular among UN bodies. Among other things, this includes efforts to integrate actions

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into co-ordination mechanisms such as the UN Development Group, the Inter-Agency Standing Committee on humanitarian action, and development assistance frameworks, such as the Common Country Assessments, the UN Development Assistance Framework and Poverty Reduction Strategies. The MOB is composed of senior managers from IFRC, UNDP (representing the UNDG), UNEP, UN-OCHA, WMO and World Bank. The representative of the UNDG acts as Vice Chair. The ISDR Inter-Agency Reference Group acts as a venue for joint work programming among the participating organizations and to improve coherence and coordination with a view to better supporting countries as they implement the Hyogo Framework. The ISDR Secretariat convenes the Group on behalf of the USG; it is composed of senior representatives of FAO, IFRC, ILO, ISDR Secretariat, UNDP, UNEP, UNESCO, UNICEF, UN-OCHA, WMO and World Bank. The ISDR secretariat was established in 2000 to support the ISDR System in the areas of co-ordination and resource mobilization, advocacy and partnership building and strategic information and policy guidance. It facilitates and services the Global Platform, the Management Oversight Board and the ISDR Inter-Agency Reference Group. The ISDR secretariat is overseen by the USG for Humanitarian Affairs; its headquarters is in Geneva and regional units are located in Costa Rica and Kenya. Within the ISDR framework, the Secretary-General’s representative at a country level (RCs, Humanitarian Co-ordinators, Special Representatives of the Secretary-General) and UNCTs support, the national authorities and civil society in establishing risk reduction strategies and ensure that the UN programmes’ strategies are in line with the Hyogo Framework for Action. The ISDR system brings together 65 UN and international organizations; 44 nongovernmental organizations; 33 regional intergovernmental organizations; 13 academic and research institutions; and 29 networks. 7. Joint UN Programme on HIV and AIDS (UNAIDS) UNAIDS is a joint venture of the UN family to lead and support an expanded response to HIV and AIDS that includes preventing transmission of HIV, providing care and support to those already living with the virus, reducing the vulnerability of individuals and communities to HIV and alleviating the impact of the epidemic. UNAIDS does not provide substantial direct funding and is not an implementing agency. The UNAIDS secretariat’s functions are advocacy, strategic information, monitoring and evaluation, civil society engagement, and partnership development and resource mobilization. UNAIDS operations are implemented under the Three Ones principles, which reflect aspects of the Paris Declaration on Aid Effectiveness and include one national AIDS action plan, one national AIDS co-ordinating authority, and one country-level monitoring and evaluation system UNAIDS brings together the efforts and resources of ten UNAIDS cosponsors. The UNAIDS Committee of Cosponsoring Organizations (CCO) meets twice a year to discuss the division of labour and avoid duplication, enable UNAIDS to deliver a unified and consolidated programme and ensure that national AIDS programmes receive the best technical support in specialized areas. The CCO has the following members: ILO,

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UNDP, UNESCO, UNFPA, UNHCR, UNICEF, UNODC, WFP, WHO, and World Bank. 8. Policy Committee The Policy Committee aims to rationalize input into the UN Secretary-General’s decision-making process. The Committee was established in August 2005 to consider issues requiring strategic guidance and policy decisions on thematic and countryspecific issues affecting the UN. The Policy Committee also identifies emerging issues. UN executive committees and all UN system organizations can propose agenda items to the Committee. All executive committees are kept informed of relevant items on the Policy Committee’s forward agenda. The Policy Committee is made up of the following standing members under the chairmanship of the UN Secretary-General: ECESA Chair, ECHA Chair, ECPS Chair, OHCHR High Commissioner, Special Adviser, UN Deputy Secretary-General, UN Chef de Cabinet, UNDG Chair, UN-DPI USG, UN-DPKO USG (alternate ECPS Chair), and UN-OLA Legal Counsel. Officials from the UN system with a stake in a given issue are invited for the discussion. 9. UN Counter-Terrorism Implementation Task Force (CTITF) The CTITF is a co-ordinating and information-sharing body of an advisory nature that serves as a forum to discuss strategic issues and develop policy recommendations. Chaired by the Office of the UN Secretary-General, it brings together key actors of the UN system and its partners that can contribute to an effective co-ordinated fight against terrorism. The UN Counter-Terrorism Strategy adopted in 2006 serves as a common platform and supports the practical work of the Task Force. The Task Force organizes its work through working groups to address priority issues such as financing of terrorism; human rights; radicalization and extremism that lead to terrorism; use of the Internet for terrorist purposes; victims of terrorism; and vulnerable targets. The CTIFT compiles activities undertaken by member entities, as well as fact sheets and handbooks that provide member entities with information on and access to existing counter-terrorism resources available through the UN system. The CTITF has the following members: CTED, Expert Staff of 1540 Committee, IAEA, ICAO, IMF, IMO, INTERPOL, Monitoring Team of 1267 Committee, OHCHR, OPCW, Special Rapporteur on the promotion and protection of human rights while countering terrorism, UNDP, UN-DPA, UN-DPI, UN-DPKO, UN-DSS, UNESCO, UNICRI, UN-ODA, UNODC, UN-OLA, WCO, WHO, and World Bank. 10. UN Evaluation Group (UNEG) UNEG aims to strengthen the objectivity, effectiveness and visibility of the evaluation function across the UN system. It was established in 1984. The Group advocates the importance of evaluation for learning, decision-making and accountability, provides a forum for members to share experiences and information, and promotes the simplification and harmonization of reporting practices. UNEG is a professional network of

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evaluation units of the UN system, including specialized agencies, funds, programmes and affiliated organizations. It is chaired by the UNDP and is supported by an Executive Secretary and the UNEG Secretariat. UNEG has the following members: CTBTO, FAO, GEF, IAEA, ICAO, IFAD, ILO, IMF, IMO, IOM, ITC, JIU, OHCHR, UNAIDS, UNCDF, UNCTAD, UN-DESA, UNDP, UN-DPI, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UNESCO, UN-ESCWA, UNFIP, UNFPA, UNHABITAT, UNHCR, UNICEF, UNIDO, UNIFEM, UN-OCHA, UNODC, UN-OIOS, UNV, UNWTO, WFP, WHO, WIPO, WMO, and World Bank. 11. UN Geographic Information Working Group (UNGIWG) UNGIWG was established in March 2000 to facilitate inter-agency co-operation and co-ordination on specific issues in the fields of cartography and geographic information science. The objective of UNGIWG is to promote the use of geospatial information. The Group implements protocols for sharing, maintaining and assuring the quality of geospatial information, develops and maintains a geospatial data infrastructure with common geographic databases, interoperable systems and common standards, and engages in capacity building to enhance normative, programme and operational capabilities. UNGIWG has the following members: CTBTO, FAO, IAEA, ICAO, UNAIDS, UN-DESA, UN-DM, UNDP, UN-DPA, UN-DPI, UN-DPKO, UNECA, UNECE, UNECLAC, UNEP, UNESCAP, UNESCO, UNFPA, UN-HABITAT, UNHCR, UNICEF, UNITAR, UN-OCHA, UNODC, UN-OLA, UN-OOSA, UNOPS, UNU, WFP, WHO, WMO, and World Bank. 12. UN Global Compact The UN Global Compact is a strategic policy initiative for businesses that are committed to aligning their operations and strategies with universally accepted principles in the areas of human rights, labour, environment and anti-corruption. It is a catalyst for actions in support of broader UN goals, including the MDGs. Business, as a primary agent driving globalization, can help ensure that markets, commerce, technology and finance advance in ways that benefit economies and societies everywhere. The Global Compact provides a forum to share best and emerging practices, advance sustainability solutions in partnership with a range of stakeholders, including UN agencies, governments, civil society, labour, and other non-business interests, and access the extensive knowledge and experience of the UN on sustainability and development issues. The Global Compact incorporates a transparency and accountability policy known as the Communication on Progress (COP). The annual posting of a COP is an important demonstration of a participant’s commitment to the UN Global Compact and its principles. Participating companies are required to follow this policy, as a commitment to transparency and disclosure is critical to the success of the initiative. Failure to communicate will result in a change in a participant’s status and possible delisting. Structured as a public-private initiative, the Global Compact policy framework is global and local; private and public; voluntary yet accountable with a unique constella-

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tion of participants and stakeholders, bringing companies together with governments, civil society, labour, and the UN. The Global Compact has over 5,000 corporate participants and stakeholders from over 130 countries. It includes the following core members: ILO, OHCHR, UNDP, UNEP, UNIDO, and UNODC. 13. UN Non-Governmental Liaison Service (NGLS) The NGLS was established in 1975 to promote inter-agency co-operation between the UN system and NGOs in the areas of information, education and advocacy work on development and North-South issues. This is done by informing NGOs about development initiatives and activities of the UN system and by informing the UN system about relevant NGO initiatives and activities. The NGLS has the following members: FAO, IFAD, ILO, OHCHR, UNAIDS, UNCTAD, UN-DESA, UNDP, UN-DPI, UNEP, UNESCO, UNFPA, UN-HABITAT, UNHCR, UNICEF, UNODC, WFP, WHO, and World Bank. 14. Representatives of Internal Audit Services of UN Entities and Multilateral Institutions (RIAS) RIAS aims to strengthen internal auditing practices and professionalism by providing a forum for promoting and supporting independence, innovation, collaboration and common positions of its members to add value to their organizations. The network includes the UN RIAS Operational Sub-group, which also reports to the UNDG Working Group on Joint Funding, Financial and Audit Issues. RIAS meetings are held annually and administrative support is provided by a member organization on a rotating basis. RIAS has the following members: ADB, AFDB, AUC, CGIAR, COE, CTBTO, EBRD, EC, EIB, EPO, FAO, Global Fund, IADB, IAEA, ICAO, ICC, IFAD, ILO, IMF, IMO, INTERPOL, IOM, ITU, OECD, OPCW, OSCE, UN, UNDP, UNESCO, UNFPA, UNICEF, UNIDO, UNOPS, UNRWA, UPU, WFP, WHO, WIPO, WMO, World Bank, and WTO. In addition, the following observers participate in RIAS: UNBOA, UN-JIU, CEC, IIA, and INTOSAI.

APPENDIX THREE

INTERNATIONAL ENVIRONMENTAL GOVERNANCE

TABLE OF CONTENTS

I II III IV V

UN Environment Programme (UNEP) and System of Governance.................. Multilateral Environmental Agreements (MEAs) ............................................. Inter-Agency Co-ordination .............................................................................. Resources .......................................................................................................... Reform of International Environmental Governance (IEG)..............................

Page 160 163 167 170 171

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CHAPTER ONE

UN ENVIRONMENT PROGRAMME (UNEP) AND SYSTEM OF GOVERNANCE There is general agreement that the current system of international environmental governance (IEG) is fragmented and lacks coherence. Environmental issues have come to influence the work of practically every UN organization. In addition, there are a large number of multilateral environmental agreements (MEAs), many with their own governing bodies and secretariats, which focus on a specialized issue, such as climate change or trade in endangered species. In addition, the World Bank and other multilateral and bilateral development institutions play a significant role in implementing policies related to the environment, with little or no co-ordination with the rest of the UN system. The need to strengthen IEG was recognized in 2002 by the Global Ministerial Environmental Forum (GMEF). The current system is described in Chapter I to IV, followed by an outline of some of the reform proposals in Chapter V. Following the UN Conference on the Human Environment held in Stockholm in 1972, the General Assembly established the UN Environment Programme (UNEP) to promote international co-operation in the field of the environment and to provide guidance for the co-ordination of environmental programmes within the UN system. During the preparatory process, the option to establish a new UN specialized agency had been considered. Specialized agencies are autonomous intergovernmental organizations with governing bodies independent from the General Assembly and the UN Secretariat that perform normative and operational functions in a specific issue area. A large number of existing organizations were already engaged in environmental activities. A serious effort to reallocate environmental responsibilities among agencies or institute broader structural reform was deemed impossible given the legal autonomy of the agencies. Moreover, many observers saw the environment as an integrative issue, one that should not be assigned to one agency responsible for one sector. Instead, UNEP was initially conceived as a smaller unit at the highest level under the General Assembly to create a broad and comprehensive framework for environmental assessment, identification of alternatives, and determination of priorities and serve as a centre of leadership. UNEP was to be normative and catalytic and have no operational functions so it would avoid unnecessary competition with organizations that were already active. As negotiations proceeded, an institutionally somewhat weaker version began to take shape. This may also have been the result of concerns that a strong organization could infringe upon prerogatives in the national context. Established as a UN programme, UNEP has limited independence and reports to the General Assembly through ECOSOC. It does not have universal membership but is overseen by a 58member Governing Council, elected by the General Assembly. The Assembly had also established the Environmental Fund to finance new international environmental initiatives within and outside the UN system. UNEP was not to undertake projects itself, but was given broad authority to co-ordinate environmental programmes within the UN system. In the years since then, UNEP has not been able to establish the autonomy necessary to become a strong anchor institutionally. Many UN bodies refused to accept UNEP’s mandate with regard to overall co-ordination of envi-

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ronmental activities. In addition, the Environment Fund did not live up to its initial promise. Developing countries feared the diversion of development aid into environmental activities and the creation of new environmental conditions on funding. As a result of inadequate contributions, the Environment Fund never became the principal source of financing for the implementation of the international initiatives. Mounting concern over continuing environmental degradation led the General Assembly to endorse the establishment of a special commission on the environment and development in 1983. The commission was to put forward a new approach to international co-operation on development and the environment, based on sustainable development. Its report (the Brundtland Report) was a catalyst for the 1992 UN Conference on Environment and Development (UNCED), also known as the ‘Earth Summit’. The Summit adopted Agenda 21 and the Rio Declaration, which mapped out control measures based on scientific assessments for the protection of the global environment. The Summit also led to the creation of the Commission on Sustainable Development (CSD), the Multilateral Fund for the Implementation of the Montreal Protocol and the Global Environment Facility (GEF). The GEF is managed by the World Bank, UNEP and UNDP as the major international financial mechanism for projects and programmes that protect the global environment. The GEF has attracted substantial funding of over USD 1.5 billion since 1991. The implementation of GEF projects through three different organizations, however, yielded mixed results generated by recurrent institutional jealousies. Moreover, the CSD has not been fully effective in ensuring the integration of environment and development. Nevertheless, the creation of the CSD and GEF in the early 1990s marginalized UNEP politically and eclipsed it financially. Increased emphasis on environmental work at the World Bank also led to overlap with UNEP. As part of the 1997 UN reform programme, the Task Force on Environment and Human Settlement suggested elevating UNEP to a specialized agency and improving its ability to co-ordinate activities with other specialized agencies by cutting across the mandate of institutions concerned with the environment and sustainable development, such as UNDP. Although no action was taken to upgrade UNEP, the General Assembly approved a new governing body and a new inter-agency mechanism. The new Global Ministerial Environmental Forum (GMEF) is convened as a special session of the UNEP Governing Council, which has universal participation, to review important environmental policy issues. The GMEF was to be the cornerstone of IEG. Finally, the new Environment Management Group (EMG), chaired by the Executive Director of UNEP and reporting to the UNEP Executive Council, was established to co-ordinate issues in the field of environment and human settlement. In 2002, the GMEF adopted the Cartagena Package on strengthening IEG. This included recommendations to improve synergies among the numerous MEAs through a periodic review of their effectiveness and to foster environmental policy co-ordination across the UN system. The World Summit on Sustainable Development (WSSD), held in Johannesburg in 2002, endorsed the Cartagena Package. It also renewed the commitment to promote sustainable development through the integration of the three pillars of sustainable development: economic development, social equity and environmental protection. The Summit broadened the scope of governance far beyond the confines of UNEP, rendering co-ordination of multilateral policies and decisions much

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more complex. The environmental governance structure defined by the 1992 Rio and 2002 Johannesburg summits assigns environmental assessment and policy development to UNEP, enforcement to the MEAs, and sustainable development to the World Bank, UNDP and development organizations.

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CHAPTER TWO

MULTILATERAL ENVIRONMENTAL AGREEMENTS (MEAs) 1 International environmental policy-making has generally been segregated on the basis of specific topics, sectors or territories in order to cope with the complexity of environmental problems and has evolved incrementally. The creation of MEAs preceded the establishment of UNEP. The first dates back to the 1868, with the Convention on Navigation on the Rhine. However, the vast majority of MEAs have been adopted since the Stockholm Conference in 1972. There are more than 500 international treaties and other environment-related agreements. This includes 61 agreements on atmosphere, 155 on biodiversity, 179 on chemicals, hazardous substances and waste, 46 land conventions and 197 on water issues.2 There are currently 45 MEAs with global geographical scope (see Table 1). MEAs describe parties’ obligations in complying with the environmental control measures under the particular convention. These include the financial mechanisms for the transfer of resources from developed to developing countries to assist them in complying with the control measures. They also describe the function of the MEA secretariat, which can include facilitating norm creation, promoting advocacy and assisting the parties to comply with their reporting obligations, and facilitating domestic implementation. The MEA secretariat budget may cover costs for staff, documentation, travel, and office space. A number of the MEAs have designated UNEP as their host organization, responsible for providing them with secretariat services. UNEP exercises this function through seven secretariats for nine global conventions and protocols and eight secretariats for eight regional conventions. Various other organizations manage also MEAs. IMO services 50 conventions on maritime safety and the marine environment, ILO 11 environment-related conventions in the field of occupational health and safety, and IAEA 5 conventions related to nuclear safety. The UN Economic Commission for Europe (UNECE) provides 17 regional environmental conventions and protocols with secretariat facilities and FAO has a similar link with several conventions and agreements in the field of food and agriculture. The World Heritage Centre, which serves as the secretariat of the World Heritage Convention, is an integral part of UNESCO and the 1982 UN Convention on the Law of the Sea has secretarial facilities housed in the UN Division for Ocean Affairs and the Law of the Sea in New York. Other MEA secretariats are institutionally linked to the UN, such as the UN Framework Convention on Climate Change (UNFCCC), Convention on Biological Diversity (CBD) and UN Convention to Combat Desertification in Countries Experiencing Serious Drought and/or Desertification, particularly in Africa (UNCCD). The secretariat of the Conven1 JIU Inspector Tadanori Inomata, Management Review of Environmental Governance within the UN System, Joint Inspection Unit, JIU/REP/2008/3, Geneva, 2008. 2 Norichika Kanie, ‘Governance with Multilateral Environmental Agreements: A Healthy or IllEquipped Fragmentation’, in Lydia Swart and Estelle Perry (eds.), Global Environmental Governance: Perspectives on the Current Debate, Center for UN Reform Education, New York, May 2007, p. 68.

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tion on International Trade in Endangered Species of Wild Fauna and Flora (CITES) is under the aegis of the International Union for Conservation of Nature (IUCN), a nonUN body. Agreements have been established between many MEAs and their host organizations which recognize the independent status of these MEAs and the autonomous competence of their secretariats to implement their policies, work programme and budget. The proliferation of MEAs has increased administrative and institutional costs for member states, because it leads to more meetings, international negotiations and reporting. Developing countries are unable to cope with the extensive reporting and participation requirements of the current multilateral environmental structure. For example, the three Rio Conventions (biodiversity, climate and desertification) have up to 230 meeting days annually. The burden is seen as triggering treaty fatigue. At the intergovernmental level, UNEP has been given lead responsibility for improving co-ordination and coherence between MEAs. This has been a major challenge. Linkage between MEA secretariats was established through the UNEP Division for Environmental Conventions. Other initiatives have been only partially successful, including the plans to develop a database on gaps between MEAs and emerging issues, to examine potential conflicts between MEAs, and to highlight linkages between the agendas of various international meetings. Impressive as these recommendations were, they were never implemented. Moreover, there is no mechanism to solve substantive contradictions between MEAs. In the absence of such a mechanism, for example, efforts to overcome substantive contradiction between the Montreal Protocol on ozone layer depletion and the UNFCCC Kyoto Protocol on climate change took from 1997 until 2007 to be successful. UNEP efforts to streamline administrative arrangements between MEAs have been long and costly. These efforts include proposals to consolidate the secretariat services of three chemical conventions3 in order to reduce costs. From March 2007 to March 2008, a working group of the 45 parties convened and finally agreed on a recommendation for adoption by the three conferences of the parties. MEAs have been effective at improving selective aspects of the environment. Stratospheric ozone pollution has been reduced, oil spills in the oceans are down, and European acid rain has been greatly reduced. The convention on international trade in endangered species has induced behavioural change by focusing on trade. Due to the unco-ordinated and fragmented nature of MEAs, however, there is considerable conflict and overlap in both policy development and implementation. The shortcomings are difficult to address in the absence of a regular mechanisms to decrease incoherencies and enhance synergies between MEAs at the administrative and programme levels.

3

The Basel Convention on the Control of Trans-boundary Movements of Hazardous Wastes and their Disposal, the Stockholm Convention on Persistent Organic Pollutants and the Rotterdam Convention on the Prior Informed Consent Procedure for Certain Hazardous Chemicals and Pesticides in International Trade.

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Table 1

List of global Multilateral Environment Agreements (MEAs) No

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15

16 17 18 19 20 21 22

Subject Atmosphere Vienna convention for the protection of the ozone layer Montreal protocol on substances that deplete the ozone layer UN framework convention on climate change (UNFCCC) Kyoto protocol to the UNFCCC Biodiversity-related Ramsar convention on wetlands of international importance especially as waterfowl habitat Convention on international trade in endangered species of wild fauna and flora (CITES) Convention on migratory species (CMS) Convention on biological diversity (CBD) Cartagena protocol on biosafety to CBD Convention on protection of the world cultural and natural heritage Chemicals and hazardous wastes Basel convention on the control of transboundary movements of hazardous wastes and their disposal Convention on the prohibition of the development, production, stockpiling and use of chemical weapons and their destruction adopted at Paris Rotterdam convention on the prior informed consent procedure for hazardous chemicals and pesticides Stockholm convention on persistent organic pollutants Land UN convention to combat desertification in those countries experiencing serious drought and/or desertification, particularly in Africa Nuclear Treaty banning nuclear weapon tests in the atmosphere, in outer space and under water Convention on the prohibition of emplacement of nuclear and mass destruction weapons on sea-bed, ocean floor and subsoil Convention on early notification of a nuclear accident Convention on assistance in the case of a nuclear accident or radiological emergency Convention on nuclear safety Marine environment Convention relating to Intervention on the high seas in cases of oil pollution casualties (INTERVENTION) Intervention protocol (pollution other than oil) Protocol convention on international fund for compensation for oil pollution damage Amendment to protocol (limits of compensation)

Secretariat

Signed (as of 12/04)

Date adopted

UNEP UNEP

187 186

1985 1987

UN UN

188 84

1992 1997

IUCN

138

1971

UNEP

164

1973

UNEP UNEP UNEP UNESC O

85 189 132 177

1979 1992 2000 1972

UNEP

162

1989

OPCW

174

1993

UNEP

99

1998

UNEP

165

2001

UN

191

1994

CTBTO

130

1963

CTBTO

108

1971

IAEA IAEA

107 106

1986 1986

IAEA

72

1994

IMO

85

1969

IMO IMO

94 86

1973 1992

86

2000

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Table 1 (continued) List of global Multilateral Environment Agreements (MEAs) No

Subject

Secretariat

23

Convention on the prevention of marine pollution by dumping of wastes and other matter Amendments to annexes (incineration at sea) Amendments to annexes (list of substances) Convention for the prevention of pollution from ships, 1973 as modified by the Protocols of 1978 and 1997 Annex I, as amended Annex II as amended, Annex III, as amended Annex IV, as amended Annex V, as amended Annex VI, as amended Convention on oil pollution preparedness, response and co-operation (OPRC) Law of the sea UN convention on the law of the sea (UNCLOS) Agreement relating to the Implementation of part XI of the UNCLOS Agreement relating to the implementation of the provisions of the convention relating to the conservation and management of straddling fish stocks and highly migratory fish stocks Occupational hazards conventions Safety provisions (building) convention, 1937 Radiation protection convention, 1960 Benzene convention, 1971 Occupational cancer convention, 1974 Working environment (air pollution, noise and vibration) convention, 1977 Occupational safety and health convention, 1981 and protocol of 2002 Occupational health services convention, 1985 Asbestos convention, 1986 Safety and health in construction convention, 1988 Chemicals convention, 1990 Prevention of major industrial accidents convention, 1993 Safety and health in mines convention, 1995 Safety and health in agriculture convention, 2001 Promotional framework for occupational safety and health convention, 2006 Work in fishing convention, 2007 Miscellaneous Geneva convention on road traffic Convention on international liability for damage caused by space objects

24

25 26 27 28

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45

Date adopted

IMO

Signed (as of 12/04) 81

IMO

80 79 127

IMO

110 95 115 12 78

1978 1980 1973/ 78/97 1978 1978 1978 1978 1978 1997 1990

UN ISBA, UN UN

174 128

1982 1994

72

1995

ILO ILO ILO ILO ILO

21 48 38 37 45

ILO

52

ILO ILO ILO ILO ILO ILO ILO ILO

27 32 23 17 13 23 10 6

ILO

0

UN UNOOSA

93 107

1972

1949 1971

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CHAPTER THREE

INTER-AGENCY CO-ORDINATION The Inter-Agency Committee on Sustainable Development (IACSD) was entrusted with system-wide co-ordination in the implementation of Agenda 21, which was approved by the 1992 UNCED Conference. In addition, a number of environmentrelated sectoral inter-agency groups had previously been formed. In 1999, IACSD was replaced by the Environmental Management Group (EMG), while the sectoral interagency groups such as UN-Energy, UN-Water, UN-Oceans, and the International Strategy for Disaster Reduction were integrated into the UN system’s inter-agency mechanism, the UN Chief Executive Board (CEB). The EMG reports to the UNEP Executive Council and co-ordinates issues in the field of environment and human settlement. The Group is chaired by the Executive Director of UNEP and the EMG Secretariat is hosted by UNEP in Geneva. The EMG has 44 members including UN programme and funds such as UNDP and WFP; UN regional commissions; specialized agencies such as IMO, UNESCO, and WMO; the World Bank and WTO; and environment-focused mechanisms such as the GEF. Table 2 describes the involvement of EMG members in 12 issue areas. Two asterisks indicate an organization’s primary involvement and one asterisk denotes a secondary involvement. Among the 44 organizations in the EMG, 31 are active in the area of water, 29 in chemicals and 26 in climate change. Moreover, the organizations are spread across the globe. For example, UNEP is based in Nairobi, UNESCO in Paris, IMO in London, WMO in Geneva and the GEF in Washington. The fragmentation sometimes differentiates organizations with different objectives or a focus on different types of activities. With regard to organizational objectives in the chemical regime, for example, the WHO is concerned with how chemicals affect human health, the ILO protects the rights of workers who interact with chemicals while the IMO prevents chemical waste from entering the ocean. And, with regard to different types of activities, for example, the WMO is focused on analytical activities involving research and analysis, UNEP on normative activities which produce norms, standards, and policies, and UNDP on operational activities – it implements projects and provides services. Fragmentation is particular rampant in the operational area. There have been limited efforts to rationalize activities in this field such as the 2004 framework agreement between UNEP and UNDP. The agreement outlines the UNDP’s mandate to implement and coordinate operational activities, especially in the field of mainstreaming the environment into sustainable development. In addition, UNEP agreed to implement operational activities only when entrusted with specific projects by multilateral financial mechanisms. The implementation of operational activities at the national level is coordinated through the UNDG, with the UN Resident Representatives system, the UNCTs, UNDAF and ‘Delivering as One’ planning tools. This organizational proliferation seems to be in line with the argument that the environment should be mainstreamed into the mandates of all relevant organizations. The resulting fragmentation not only requires considerable co-ordination effort, but it

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also creates concern regarding institutional duplications and turf battles among organizations for mandates and resources. Even with regard to housekeeping matters such as sustainable procurement, energy savings and waste disposal by the secretariats, the UN system agencies have not managed to adopt common policies. The results of the current co-ordination arrangement are limited. Additional efforts might be required to closer bring the two co-ordinating bodies, EMG and UNDG, closer together. Most importantly, however, the EMG has not been able to impose co-ordination because of the agencies’ resistance to what they see as UNEP’s control over their work.

*

**

**

*

Water

**

Invasive Species Endangered Species

Forests

**

Climate Change Desertification Energy

Chemicals

Biodiversity

Air Pollution

**

Fisheries

CBD CITES CMS ECA ECE ECLAC ESCAP ESCWA FAO GEF GISP IAEA ICAO IEA IFAD ILO Interpol IMO IPCC ISDR ITC ITLOS ITTO ITU IUCN IWC

Agriculture

Issue/ Organization

Table 2 Involvement of EMG members in 12 issue areas4

** **

**

** ** **

* ** ** ** ** *

** ** ** ** ** ** ** **

*

**

** ** * **

** * * **

** ** * **

** ** ** ** ** * *

** *

**

** **

** **

** ** ** ** ** ** **

* **

** ** ** *

** ** **

** **

**

** ** * **

*

* *

* *

** *

* ** **

* **

*

*

** *

*

** ** * ** **

*

**

** **

*

* **

* **

*

** **

**

*

**

** **

4 Maria Ivanova, Jennifer Roy, ‘The Architecture of Global Environmental Governance: Pros and Cons of Multiplicity’ in Lydia Swart, Estelle Perry (eds.), op.cit., pp. 48-64.

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** ** **

** *

* * *

*

**

Invasive Species Endangered Species Water

**

* **

* ** *

** *

*

**

**

**

** **

**

Forests

**

Fisheries

* * **

Climate Change Desertification Energy

** **

Chemicals

Air Pollution Biodiversity

OECD OCHA OHCHR UNCCD UNESCO UNFCCC UNFF UNFPA UNHABITAT UNHCR UNICEF UNIDO UNITAR UNU UPU WFP WHO WIPO WMO World Bank WTO UNWTO WWC

Agriculture

Issue/ Organization

Table 2 (continued) Involvement of EMG members in 12 issue areas

** **

**

**

** **

** ** ** ** ** ** * **

**

** **

** **

** **

**

**

** ** *

**

** *

** *

**

*

**

** * **

**

** ** ** **

** **

** ** **

**

** **

**

*

** ** * **

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CHAPTER FOUR

RESOURCES According to the Organization for Economic Co-operation and Development (OECD), out of approximately USD 100 billion of official development assistance (ODA) in 2005, a third was spent on environmental and environment-related activities in support of sustainable development in areas such as water supply and sanitation. Of this amount, USD 1.9 billion was committed to environment protection. The largest share, approximately USD 600 million, went to the GEF, a funding facility for the implementation of MEAs, including CBD, UNFCCC, UNCCD and the Stockholm Convention. Initially fully affiliated with the World Bank, the GEF was substantially reformed in 1994 and is now governed together by UNEP and UNDP. In addition to the GEF, USD 380 million was available to the UNDP, USD 330 million to the UN specialized agencies, USD 180 million to the Multilateral Fund for the Implementation of the Montreal Protocol and USD 100 million to UNICEF, to mention just the agencies receiving the largest amounts. From 2000 to 2006, the development agencies’ expenditures for environment-related operational activities grew far more than UNEP and the MEAs’ expenditures for normative activities related to environmental protection. Staff employed by environment-related entities total approximately 900 in UNEP, 200 in UNFCCC, 60 in the Convention on Biodiversity, 50 in UNCCD, 30 in the Convention on Migratory Species (CMS), 25 in CITES, 22 in the Species Multilateral Fund, 20 in the Basel Convention, 15 in the Montreal Protocol and 10 in the Rotterdam Convention. Not included in the resources for environmental protection are the funds administered by the market-based emission trading schemes under the Kyoto Protocol to the UNFCCC for global emission reductions. This money relates in particular to the Clean Development Mechanism (CDM), a project-based mechanism for developing countries. The CDM aims to help developing countries to ameliorate the cost of emission reductions, to achieve sustainable development and to contribute to the global stabilization of GHG concentrations in the atmosphere. This is to be achieved by decarbonizing the economic growth of developing countries. The CDM has experience phenomenal growth and motivated much institutional and technical capacity building with more than USD 5 billion worth of transactions in the first nine months of 2006.

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CHAPTER FIVE

REFORM OF INTERNATIONAL ENVIRONMENTAL GOVERNANCE (IEG) The large number of bodies involved with environmental work has allowed specific issues to be addressed successfully, but has also increased fragmentation and resulted in unco-ordinated approaches in both policy development and implementation. It has also placed a heavy burden on countries in terms of participation in multilateral environmental processes, compliance with and effective implementation of legal instruments, reporting requirements and national co-ordination. Whereas arguments can be found in favour of institutional multiplicity and the beneficial impact of purposeful overlap, it was argued that the lack of a synergistic and co-ordinated approach to environmental protection was resulting in unproductive multiplicity. In 2002 the GMEF approved the Cartagena Package on strengthening IEG. The agreement outlined efforts to create a more coherent institutional framework for the UN’s environmental activities by strengthening and building upon existing structures and better implementing past agreements. Specifically, this included universal membership in UNEP, implementation of the Bali Strategic Plan for Technology Support and Capacity Building, strengthening UNEP’s scientific and the financial base, coordination with MEAs, enhanced co-ordination across the UN system, an indicative scale for funding UNEP, and the importance of the EMG. Some member states argued that the efforts envisaged in the Cartagena Package would be sufficient, while others were asking for more fundamental institutional changes. Indeed, about 50 countries have indicated their support for the establishment of a UN Environment Organization (UNEO) by consolidating the fragmented system and giving it increased resources and a comprehensive scientific, normative and operational mandate. UNEO would have greater political leverage than UNEP in global policy making. UNEO would be able to better integrate environmental policies into other policy areas, notably poverty eradication and economic development. Strong support was voiced in particular by France, Germany, the Netherlands and the Scandinavian countries. The United States had previously expressed little interest in IEG and sustainable development. Concerns were expressed that a strengthened IEG system might lead to new trade barriers. Many developing countries voiced their fears that UNEO might introduce new conditions and favour environmental policies to the detriment of economic development and thus of poverty eradication. UNEO could lead to an organization with enforcement powers, considered inappropriate in the field of environmental policies as it would not address the roots of the problems, such as the lack of capacity and resources. There were a number of suggestions on the possible arrangements for a UNEO. The European Union proposed upgrading the UNEP programme to a UNEO specialized agency, with universal membership, which would continue to be located in Nairobi, but would have more stable funding and a strengthened IEG structure. Some suggested that this could be achieved while maintaining the existing system of issue-specific international environmental regimes. MEAs were a major issue for consideration. Suggestions ranged from better co-ordination through clustering in areas such as chemi-

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cals and biodiversity to consolidating the MEAs within a UNEO. Joint administration of the convention secretariats and simplified and unified reporting methods were considered important. Other members suggested merging the WMO into a UNEO or providing UNEO with enforcement power perhaps through trade sanctions. It was argued that a UNEO could host the CDM and be a clearing house for the future emission trading scheme under the Kyoto Protocol to the UNFCCC which was seen as reducing bureaucratic overlap. Many donor countries suggested maintaining the World Bank and GEF for most of the financial transfer, whereas the GEF’s norm-setting function regarding the criteria for financial disbursement could be transferred to a UNEO assembly. As alternatives to a full-fledged UNEO, hybrid versions were proposed aimed at encouraging a new governance approach. This would include a UNEO to focus on the development of policy and the co-ordination of the MEAs, as well as UNEP to continue co-ordinating international environmental science management. Rather than a UNEO, it was also suggested that a world organization on sustainable development should be established by merging UNEP and UNDP.

APPENDIX FOUR

EVOLVING AID ARCHITECTURE TABLE OF CONTENTS Page I UN Development System ................................................................................ 174 1. UN Development Group (UNDG) ............................................................. 175 2. Resident Co-ordinator (RC) System, UN Country Teams (UNCT) and UN House .............................................................................................. 175 3. UN Development Planning and Programming Process ............................. 176 II Aid Effectiveness ............................................................................................ 178 III The Global Fund to Fight AIDS, Tuberculosis and Malaria ........................... 182 1. Background on the Global Fund ................................................................ 182 2. Operating Principles................................................................................... 183 3. The Global Fund Board and Governance................................................... 184 4. The Global Fund Secretariat ...................................................................... 185 5. The Grant Implementation Process ............................................................ 185 6. Resource Mobilization ............................................................................... 187

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CHAPTER ONE

UN DEVELOPMENT SYSTEM Implementation of international aid funding has evolved during the recent decade. There are now not only a larger number of organizations involved, but also different delivery mechanisms. The evolving aid architecture is illustrated by describing the UN development system in Chapter I, followed in Chapter II by the concept of ‘aid effectiveness’ and the associated principles of the 2005 Paris Declaration. New organizations have emerged outside the UN system which have operationalized those principles. One example is the Global Fund to Fight AIDS, Tuberculosis and Malaria (Global Fund) described in Chapter III. The new thinking captured in ‘aid effectiveness’ has also led to a rethinking of and adjustments in the UN development system which is captured in the reform initiative on UN system-wide coherence and its implementation under the ‘Delivering as One’ approach. In 2007, the UN development system implemented approximately USD 12 billion of multilateral aid out of USD 100 billion of ODA, which reflects a declining UN share over recent years. The main share of ODA is implemented bilaterally between donor and the recipient developing or least developed countries in Africa and Asia. Since the 1990s, the World Bank has been a major provider of development operations. Moreover, there is growing number of non-UN aid providers including regional organizations such the European Commission and a host of NGOs and private entities. Donor funding is increasingly provided not as mandatory assessments but as voluntary contributions, which now account for over 60 per cent of UN development funding. Moreover, most donors of voluntary contributions earmark funding for specific operations. The UN development system has been developed since the 1970s. It is associated with agency execution, which maintains donor control but limits the leadership and accountability of recipient organizations. UN assistance is implemented by a multitude of semi-independent UN funds and programmes and independent UN specialized agencies, mostly organized according to sectors such as health or education. The fragmentation of the system is associated with a lack of co-ordination, duplication and the draining of resources because of high transaction costs, including excessively high number of donor missions to support numerous small-scale projects. The UNDP occupies a central role in this system. Previously, the UNDP operated as a central funding mechanism for the UN’s development assistance. In the mid-1990s, the reliance of many UN entities, particularly the small ones, on UNDP financing was replaced by donor funding being channelled directly to the UN system organizations. The UNDP has adapted to these changes by moving from funding to direct implementation of sectoral activities in the development area, many of which were already addressed by UN entities with traditional expertise and mandates.

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1. UN Development Group (UNDG) The UNDG2 aims to overcome the fragmentation of the UN development system. The Group was created in 1997 as part of the UN reform to establish greater coherence between the UN operational agencies working on development at the country level. Initially, only four UN funds and programmes participated (UNDP, UNICEF, UNFPA and WFP). The UNDG now brings together 36 UN offices and departments, funds and programmes and specialized agencies; it reports to the CEB. The UN development system is present in 180 countries through 136 UNCTs of representatives of UN entities that carry out operational activities at the country level. The UNCTs are led by RCs, who are senior UN officials. The UNDG oversees the RC system, monitors operational activities in the Triennial Comprehensive Policy Review (TCPR), provides assistance to developing countries in reach their MDGs and supports the ‘Delivering as One’ pilot projects. The UNDG is chaired by the Administrator of the UNDP, who receives guidance from an Advisory Group of 13 UNDG members on managing the operational dimensions of the UNDG. In addition, it works through the standing inter-agency working groups and a multitude of working groups and task teams at the headquarters and country levels. The UNDG is supported by the UN Development Operations Coordination Office (DOCO), which is funded by the UNDP and administered under the responsibility of the UNDP Administrator. DOCO provides a link between UNDG discussions at headquarters and work at the country level. The management of the RC system and the UNCT are anchored in DOCO. DOCO prepares system-wide agreements on how to make country programmes more effective and develops procedures for country office operations in the administrative areas. 2. Resident Co-ordinator (RC) System, UN Country Teams (UNCTs) and UN House RCs and UNCTs work with national governments to provide technical assistance and policy advice, build human and institutional capacity, pilot projects, and advocate for globally agreed-upon norms and standards. The RCs aim to ensure that those activities are in line with national development priorities, the objectives of the UN system organizations, and the policy guidance on operational activities for development. The RCs are also responsible for ensuring that national governments have access to the full range of UN system expertise. RCs represent the UN system with the highest levels of government. An RC is expected to mobilize resources at the country level for the UN development system as a whole. The RC and UNCT are the main mechanisms for coordinating UN emergency, recovery and transition activities. RCs can also act as Directors of the UN Information Centres; in approximately 30 cases, they have been appointed as humanitarian co-ordinators when there is a major humanitarian crisis. The 2 For further details, see Section 3, Chapter II of Appendix II on UN Inter-Agency Co-ordination Mechanisms.

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RC is responsible for field security in almost all locations, except where there is a UN peacekeeping mission. Previously, the UNDP Resident Representative also acted as RC. Given the increased importance of the RCs’ role in the context of ‘Delivering as One’, UNDP has established separate UNDP Country Director posts to allow the RC to concentrate on UNCT work and avoid a conflict of interest. Approximately threequarters of RCs come from the UNDP and the remainder from other organizations in the UN system. The cost of the RC system amounted to USD 75 million in 2007. Each UNCT usually meets once a month and oversees the common activities of the UN in the country. Sub-groups are used to manage specific issues, including security management, shared operational activities, shared analytical work and planning, and programmatic responses to priority issues when more than one organization is engaged (e.g., HIV/AIDS, health, employment). The World Bank and IMF participate in the UNCTs’ work in most countries. Under the guidance of the RC and in collaboration with national authorities, the UNCT formulates the Common Country Assessment (CCA) and the UN Development Assistance Framework (UNDAF). The CCA identifies priorities and UNDAF sets out the national results that the UN will support. The RC reports to national authorities on progress made against results agreed on in the UNDAF. The RC assesses the UNCT members’ contributions to the team’s results. However, RCs have no authority over most UN entities. UN programmes and funds such as UNDP, UNFPA, UNICEF and WFP are colocated in UN Houses in over 60 countries where they share the same building but still have separate support services. The Joint Office initiative aims not only to co-locate all UNCT members, but also to establish joint common services, including information technology support systems, travel and banking arrangements. The first unified office was established in 2006 in Cape Verde. Not all UN organizations are present in all countries. Some non-resident agencies have national focal points located with government host agencies or agency-employed project co-ordinators. Others, such as the ILO and UNESCO, have bilateral partnership arrangements with the UNDP. Non-resident agencies co-operate with RCs and UNCTs by contributing funding and providing expertise and management services to field-level activities from regional and headquarters offices. 3. UN Development Planning and Programming Process The UN development planning and programming process at the country level starts with a joint assessment of the country situation by the government and the UN system organizations. This normally culminates in the CCA, which provides the analytical basis to identify priorities for the UN’s contribution to the achievement of national goals. This prioritization in turn guides the development of the UNDAF, a business plan for all agencies for a 3-5 year period outlining common objectives of development assistance, a common timeframe for programme implementation and a programme resources framework. The UNDAF is aligned with the national planning process and development priorities, such as the national Poverty Reduction Strategy Paper (PRSP). A key programming tool of the UNDAF is the Results Matrix, which sets out the contribution of each UN organization to each of the UNDAF’s outcomes.

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In countries where an UNDAF has not been prepared, UN organizations co-ordinate their activities in the context of UN theme groups. While the UNDAF has brought a degree of coherence to the system, harmonization remains a problem owing to variances in funding frameworks, cycles and modalities. In the case of the UNDP, UNFPA, WFP and UNICEF, the preparation of Country Programme Documents (CPDs) and Country Programme Action Plans (CPAPs) aims to harmonize programming cycles. Some agencies have also evolved their own country planning tools, such as the WHO’s country co-operation strategy, the ILO’s decent work country programmes and UNESCO’s national education support strategy. The World Bank consults with the UNCT in some of the countries to facilitate complementarity between the World Bank country assistance strategy and the UNDAF. This fragmented planning process is seen as resulting in additional transaction costs for recipient organizations, especially where several agencies are supporting the same partner to achieve a shared result. In areas where UN agencies have agreed to work together not only in the planning but also in the implementation stage, the mechanism of Joint Programmes (JPs) provides for operational co-ordination. A JP is a common work plan and related budget, involving two or more participating UN organizations and national partners. Through joint programming, common results and the modalities for supporting programme implementation are identified. In 2008, some 428 JPs were being implemented. The most common themes were HIV/AIDS; gender; health; poverty reduction; governance and democracy; and MDG measurement and reporting. JPs are essentially restricted to collaboration between three UN funds and programmes (UNDP, UNICEF and UNFPA), with the UNDP being the most active partner. In general, programme periods have been short –an average of 26 months – and budgets small, with average funding of USD 300,000. In particular, small-scale JPs have high transaction costs associated with the development of integrated work plans, joint monitoring frameworks and missions, co-ordination meetings and evaluating results. This is emphasized by the lack of harmonized funding cycles and financial procedures, the variations in cost recovery regimes, different approaches to delegation of authority between the headquarters and country levels, and differing reporting requirements. Indeed, single-agency projects might be more efficient.

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CHAPTER TWO

AID EFFECTIVENESS The limited impact of development aid resulted in increased disillusionment among donors and declining aid levels in the 1990s. In response, the World Bank and IMF promoted macro-economic policies associated with Structural Adjustment Programmes (SAPs), co-ordinated country-level activities in accordance with Comprehensive Development Framework and conditions on debt cancellation and countryspecific PRSPs. Donors and governments negotiated programme-based approaches (PBAs) in which a number of donors pooled development resources to support a defined government programme in the form of sector-wide programmes (SWAPs), which focus on sectors such as health or education. Over time, donors involved in PBAs gain confidence in the recipient governments’ internal management systems and agree to harmonize financial management, reporting and evaluation with domestic systems. In 2000, donors entered into new commitments with the adoption of the UN Millennium Declaration and the MDGs. Drastically increased development aid was pledged, for example, at the G8 meeting at Gleneagles. This also increased the interest in increasing the efficiency and effectiveness of the implementation of development financing which was high on the agenda of the UN conference held in Monterrey, Mexico, in 2002. The Monterrey Consensus outlined an agreement to increase funding for development provided that it would be used as effectively as possible. This was the first reference to ‘aid effectiveness’, a new paradigm in which aid is viewed as a partnership among donor and recipient countries, recipient countries take leadership and ownership of development plans, and good governance is required. The participating countries also reached agreements on other issues, including debt relief, fighting corruption, and policy coherence. Since its adoption, the Monterrey Consensus has become the major reference point for international development co-operation. In order to implement the new paradigm on ‘aid effectiveness’, in-depth reforms were felt to be necessary. The OECD took the lead. The OECD is a group of 30 member countries committed to democratic government and the market economy, which provides a forum where governments exchange policy experiences, identify good practices, and promote decisions and recommendations. The OECD is a recognized source of statistical, economic and social data. OECD members have significant aid programmes. The OECD’s work on ‘aid effectiveness’ was taken up by its Development Assistance Committee (DAC). The DAC maintains statistics on the global aid effort and tracks official development assistance as a basis for analytical work on aid trends and the assessment of aid effectiveness. The World Bank, IMF and the UNDP participate as observers. In May 2003, the DAC established the Working Party on Aid Effectiveness as an international forum to promote the Monterrey Consensus and to accelerate progress towards the Millennium Development Goals. The Working Party comprises senior policy advisers from the 23 OECD members, 23 developing countries and 11 multilateral organizations. The Working Party has a tripartite chairing ar-

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rangement, including representatives of a bilateral donor organization, a multilateral organization and a developing-country partner. In 2003, aid officials and representatives of donor and recipient countries gathered in Rome for the first High-level Forum on Harmonization organized by the OECD. At this meeting, donor agencies committed to work with developing countries to better co-ordinate and streamline their country-level activities. In March 2005, the Paris Declaration was adopted by the second High-level Forum including all OECD members and 60 developing countries and transition economies. The UNDP representing the UN system, international financial institutions, development agencies and NGOs attended as observers. The Declaration laid down a roadmap to improve the management and impact of ODA based on a partnership model that identified five reform areas: • Ownership: Partner countries exercise effective leadership over their development strategies and co-ordinate development actions. Donors support partner countries in building up their capacity to exercise leadership. The target set was for threequarters of partner countries to have their own national development strategies by 2010. • Alignment: Donors base their overall support on partner countries’ national development strategies, institutions and procedures. Wherever possible, they use local institutions and procedures for managing aid, such as country procurement and financial management systems, in order to build sustainable structures. Where these systems are not strong enough to manage aid effectively, donors help strengthen them. Donors also promised to improve the predictability of aid, to halve the amount of aid that is not disbursed in the year for which it is scheduled, and to continue to untie their aid from any obligation that it be spent on donor-country goods and services. • Harmonization: Donors co-ordinate their development work among themselves to avoid duplication and high transaction costs for poor countries. They committed to co-ordinate at the country level to ease the strain on partner governments, for example by reducing the large numbers of duplicated field missions. They agreed on a target of providing two-thirds of all their aid through programme-based approaches by 2010, pooling aid in support of a national health plan for example, rather than fragmented into multiple individual projects. • Managing for results: All parties in the aid relationship focus more on the end result of aid, the tangible difference it makes in poor people’s lives. They must develop better tools and systems to measure this impact. The target set is for a one-third reduction by 2010 in the proportion of partner countries without solid performance assessment frameworks to measure the impact of aid. • Mutual accountability: Donors and partners account more transparently to each other for their use of aid funds, and to their citizens and parliaments for the impact of their aid. All countries have procedures in place by 2010 to report openly on their development results. The Paris Declaration includes 12 indicators of progress, which have specific targets attached to them to be achieved by 2010. The OECD/DAC Working Party on Aid

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Effectiveness was charged with tracking progress towards the 12 indicators and providing guidance on policy and good practice. The Declaration is commonly referred to by donors as an unprecedented global consensus for reforming the delivery and management of aid to improve its effectiveness. The first round of monitoring of the 12 Paris Declaration indicators was conducted in 2006 based on activities undertaken in 2005 in 34 countries. By mid-December 2007, 115 countries had endorsed the Paris Declaration. A second survey was organized in early 2008 in which 54 developing countries examined progress towards the country-level targets. The two surveys suggested that progress has been made. For example, more than one-third of developing countries surveyed had improved their systems for managing public funds; almost 90 per cent of donor countries had untied their aid; and technical co-operation was more in line with developing countries’ own development programmes. Despite these improvements, however, the results of the survey showed that the pace of progress remains too slow to reach the targets set in 2010. In particular, although many countries have made significant efforts to strengthen their national systems, in many cases donors are still reluctant to use them. The predictability of aid flows also remains low, making it difficult for governments to plan ahead. In September 2008, the third High-level Forum took place in Accra to provide a mid-term review of the implementation of the Paris Declaration. The Accra meeting was different from its predecessor in that developing countries played a more active role in the preparation and the agenda. Some 80 developing countries took part in the regional preparatory events. In addition, more than 300 civil society groups were involved in consultations in the lead-up to the Accra meeting. The Forum endorsed the Accra Agenda for Action (AAA), which focused on stepping up progress towards the commitments outlined in the Paris Declaration. Commitments were identified in three areas where progress was still slow: • Country ownership. Developing countries need to take stronger leadership of their own development policies and engage further with their parliaments and citizens in shaping them. Donors must respect countries’ priorities, investing in their human resources and institutions, making greater use of their systems to deliver aid, and further increasing the predictability of aid flows. • Effective partnerships. Partnerships need to incorporate the contributions of all development players, middle-income countries, global funds, the private sector and civil society. The aim is for all the providers of aid to use the same principles, so that their efforts are coherent and have greater impact on reducing poverty. • Development results. Demonstration of impact must be placed at the heart of making aid more effective. There is a strong focus on helping developing countries to produce stronger national statistical and information systems to monitor and evaluate impact. Developing countries commit to making their revenues, expenditures, budgets, procurements and audits public. Donors commit to disclosing regular information on their aid flows. The Accra Forum was the first of three major international aid conferences in 2008, including the UN High-level Event on the MDGs in New York in September and the

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Follow-up International Conference on Financing for Development in Doha, Qatar, at the end of 2008. The Doha Declaration reaffirms the Monterrey Consensus and calls for a UN conference to examine the impact of the world financial and economic crisis on development. Indeed, the international aid landscape was changing. New donor countries such as China and India were becoming increasingly important. Private funding sources such as the Bill and Melinda Gates Foundation were becoming major donors and new organizations that reflected the principles of the Paris Declaration were established outside the UN system, for example the Global Fund. The new players brought substantial new resources to the aid process, but also increased the complexity developing countries face in managing aid. The Paris Declaration operationalized the new paradigm on ‘aid effectiveness’. It also attracted criticisms and alternative views by some developing countries and nongovernmental organizations. The alignment was seen as an unequal and donor-directed policy dialogue, focusing on the implementation of World Bank and IMF policies and associated conditions such as the PRSPs and SWAPs. The setting of policy conditions and benchmarks was seen as contradicting the stated goal of ownership by developing countries and undermining locally determined policy options. Specifically, the Paris Declaration donors was considered to be linking aid flows to the liberalization of procurement systems regardless of national preferences. With regard to the monitoring process for the 12 criteria, the fact that donors monitored themselves, while compliance tests for recipients were externally imposed and monitored by the World Bank, was criticized. If recipient countries did not perform, they were subject to penalties, which did not apply to donor countries. Finally, the emphasis on the operational dimensions of the aid effectiveness agenda was seen as distracting from determining effectiveness in terms of intended purpose, such as the reduction of poverty.

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CHAPTER THREE

THE GLOBAL FUND TO FIGHT AIDS, TUBERCULOSIS AND MALARIA The UN development system was struggling to take on board the principles of the Paris Declaration through the reform initiative on UN system-wide coherence and the implementation of the ‘Delivering as One’ approach. In parallel, a number of new organizational entities were built up outside the UN system which embed the basic principles of ‘aid effectiveness’. They include in particular the Global Alliance for Vaccines and Immunization (GAVI Alliance), dedicated to immunizing children in developing countries against diphtheria, tetanus, hepatitis B and yellow fever, and the Global Fund to Fight AIDS, Tuberculosis and Malaria (Global Fund). Those new entities became increasingly important and quickly took delivery of a substantial share of aid funding. Since its creation in 2000, GAVI has received a total of USD 2.6 billion in funding from government and private sources. Since its creation in 2002, the Global Fund has become the main source for international health financing, with funding of USD 20.9 billion as of 1 December 2008. In the following sections, the Global Fund is described in more detail. 1. Background on the Global Fund At the end of the 1990s, public health experts identified a number of highly effective interventions to prevent and treat HIV/AIDS, tuberculosis and malaria. At the same time, the global community began to appreciate more fully the scale of epidemics and the links among poverty, development and disease, in particular the devastation caused by HIV/AIDS in parts of Africa, the Caribbean and Asia. New lifesaving medicines for people living with HIV/AIDS were priced out of reach for those who needed them. This resulted in demands to drastically reduce the cost of essential medicines and to seek ways of increasing global spending on public health to change the course of these diseases. The leaders of the G8 countries acknowledged this need for resources in their 2000 meeting in Okinawa, Japan. In April 2001, UN Secretary-General Kofi Annan called for the creation of a global fund to channel additional resources. In June 2001, the UN General Assembly Special Session on HIV/AIDS concluded with a commitment to create such a fund, which was subsequently endorsed by the G8 at their meeting in Genoa in July 2001. A Transitional Working Group was formed to develop a framework on how the Global Fund would be structured and operated. The Global Fund was established in 2002 and its Secretariat located in Geneva. The Global Fund entered into an agreement with the WHO for the provision of a range of administrative and financial services. This temporary arrangement enabled the Global Fund to start operations quickly and to fund programmes less than a year after it was established in January 2002. As of 1 January 2009, the Global Fund had become administratively autonomous and manage its own administrative systems and processes (human resources, finance, administration, procurement and IT services).

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2. Operating Principles At the outset, the Global Fund was setup with an emphasis on a streamlined, less bureaucratic structure and processes with wide stakeholder involvement in accordance with the following operating principles: • Financial instrument, not an implementing entity: The purpose is to attract, manage and disburse resources, not to implement programmes directly, relying instead on a broad network of partnerships with other development organizations to supply local knowledge and technical assistance. • Leverage of additional financial resources: The aim is to raise large sums of money that neither replace nor reduce other resources, but complement those of other donors, and stimulate further investment by both donors and recipients. • Country-driven approach/country ownership: Programmes are developed by the recipient countries themselves in line with national strategic health plans and priorities with the involvement of all areas of society with a stake in public health, including civil society and the private sector. • Balanced approach in terms of diseases, regions and interventions: A balanced approach between the three diseases HIV/AIDS, TB and malaria is sought; between countries, with the priority on countries with low income and high disease burden; and between prevention and treatment. • Independent review processes: Independent reviews by disease and development experts assess how proposed programmes complement ongoing health and poverty reduction efforts and ensure that resources are invested in sound programmes. • Performance-based funding and accountability: Recipients are held accountable to standards that require programmes to reach specific targets throughout the life of the grant; countries determine their own individual targets based on national capacities and objectives; the approach is supported by a monitoring system and independent evaluations; two monitoring rounds were held in 2005 and 2007. • Partnership: Multi-stakeholder participation includes governments, civil society, the private sector (including businesses and philanthropic foundations) and affected communities, and collaboration with other bilateral and multilateral organizations. • Civil society as key partner: Civil society participates fully at each level throughout Global Fund processes, including governance, funding, programme review and implementation. • Lean funding mechanism: Key activities are carried out by a wide range of partners, not necessarily the Secretariat, which plays a facilitating and co-ordinating role only; the Secretariat is not actively involved in relations between external partners and members of the country mechanisms.

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The Global Fund shares many principles with the 2005 Paris Declaration on Aid Effectiveness, which emphasizes the issues of ownership, harmonization, alignment, results and mutual accountability. The Global Fund is measuring progress against the Paris Declaration to reach the 2010 targets. An assessment involving input from 54 countries which account for approximately 60 per cent of funds disbursed shows that the Global Fund performed well in the areas of managing for results, country ownership, funding programme approaches, aligning its grants with country cycles, using national procurement systems and helping to build country monitoring, evaluation and performance systems. 3. The Global Fund Board and Governance The Global Fund is governed by a Board which includes representatives of donor and recipient governments, NGOs, the private sector (including businesses and foundations) and affected communities. The following representatives are voting members: Canada, Germany, Switzerland, Eastern Europe, Eastern Mediterranean Region, Eastern and Southern Africa, European Commission, France and Spain, Italy, Japan, Latin America and Caribbean, Point Seven (Norway, Denmark, Ireland, Luxembourg, Netherlands, Sweden), Private Foundations, Private Sector, Southeast Asia, United Kingdom and Australia, West and Central Africa, and Western Pacific Region. In addition, civil society members hold three seats, namely the Developed Country NGO, the Developing Country NGO and the Communities Affected by the Diseases delegations. Key international development partners also participate as ex officio members without voting rights, including the WHO, UNAIDS, a Swiss member and the World Bank. The Board meets at least twice annually and is responsible for overall governance of the organization, including approval of grants. The Board operates by consensus and has established the following four committees: the Ethics Committee, the Finance and Audit Committee, the Policy and Strategy Committee and the Portfolio Committee. The Ethics Committee provides guidance on the application of the Policy on Ethics and Conflict of Interest for Global Fund Institutions and advises the members of the bodies and staff of the Global Fund on conflict of interest and ethics issues. The Committee resolves differences in the interpretation of conflict of interest and may bring any conflict issue to the Board for determination and review the Secretariat’s biannual report on secondment staff appointments. The Finance and Audit Committee reviews the annual budget proposed by the secretariat and monitors expenditure. The Committee receives the reports of the auditors and reviews the Fund’s audited financial statements. The Committee provides advice on the Fund’s fiscal management policies and processes, including asset-liability coverage, financial forecasts, modalities of contributions and investment policies for the Fund’s financial assets. The Policy and Strategy Committee advises on the core governance structures of the Fund, including overall strategic plans, processes and structures. The Committee reviews the overall performance of the Global Fund, making use of both internal and external evaluations, and advises on resource mobilization policy.

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The Portfolio Committee provides advice on issues relating to the portfolio of grants and receives regular portfolio updates from the secretariat, including progress with grant expenditures, reviews performance and comments on programme implementation. The Committee reviews all portfolio processes and guidelines, including appeal processes, provision of technical support through the expansion of operational partnerships, grant renewal processes, procurement and supply management policies. 4. The Global Fund Secretariat The secretariat is responsible for day-to-day operations, including mobilizing resources from the public and private sectors, managing grants, providing financial, legal and administrative support, and reporting information on the Global Fund’s activities to the Board and the public. About 470 people are employed at the secretariat which is led by an Executive Director and headquartered in Geneva, Switzerland. The administrative costs of the Global Fund (which include both the expenses related to the Global Fund secretariat and the fees paid for in-country oversight through local agents) comprise approximately 5 per cent of total annual expenditures. To date, the investment income generated by the Global Fund is sufficient to cover these administrative costs. The structure of the secretariat includes the Office of the Executive Director to whom the following five organizational clusters report: • The Corporate Services Cluster comprises the Human Resources, Administration and Internal Communication Unit, Information Technology Unit, Legal Services Unit, and Corporate Procurement Unit; • The Country Programmes Cluster comprises the Africa Unit, Asia Unit, Eastern Europe Unit, and Central Asia/Latin America and Caribbean/Middle East and North Africa Unit; •

The Finance Cluster;

• The External Relations and Partnerships Cluster comprises the Communication Unit, Partnership Unit, and Resource Mobilization Unit; • The Strategy, Performance and Evaluation Cluster comprises the Affordable Medicines Facility for Malaria (AMFM) Unit, Knowledge Management Unit, Monitoring and Evaluation Unit, Performance, Impact and Effectiveness Unit, Pharmaceutical Management Unit, and Strategy and Policy Development Unit. 5. The Grant Implementation Process The Global Fund primarily focuses on policy matters. Following the call for proposals by the secretariat, the Country Co-ordinating Mechanism (CCM) prepares grant proposals based on local needs and financing gaps. The CCM is a cornerstone of the Global Fund’s architecture, mirroring the public/private partnership structure of the Global Fund Board. The CCM does not handle Global Fund financing, but submits proposals, nominates the entities accountable for administering the funding, and oversees grant implementation. As part of the proposal, the CCM nominates one or more

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Principal Recipients (PR). To ensure that CCMs are able to be open and transparent forums, all of them need to meet requirements in order to be eligible for funding. Those requirements cover the process of selection of CCM members from the nongovernmental sector; presentation of evidence of membership of people living with the diseases; transparent process for nominating and electing a PR for programme implementation; and grant oversight arrangements. The Secretariat manages the grant portfolio, including reviewing proposals to ensure that they meet eligibility criteria, and forwards all eligible proposals to the Technical Review Panel (TRP) for consideration. The TRP is an independent group of international experts in the three diseases and cross-cutting issues such as health systems. The TRP reviews all eligible proposals for technical merit and makes one of four recommendations to the Global Fund Board: to fund; to fund if certain conditions are met; to encourage resubmission; and not to fund. The Board approves grants based on technical merit and availability of funds. An internal appeal mechanism allows applicants whose proposals were rejected in two consecutive rounds to appeal the second decision. Once the grant is approved, the secretariat contracts with one Local Fund Agent (LFA) per country to monitor implementation, since the Global Fund does not have staff at the country level. The LFA certifies the financial management and administrative capacity of the nominated PR(s). Based on the LFA assessment, the PR may require technical assistance to strengthen capacities. The strengthening of identified capacity gaps may be included as a condition precedent to the disbursement of funds to the PR. Following the LFA assessment of the PR, the secretariat and PR negotiate a legal grant agreement for a two-year funding period, which identifies results to be tracked using a set of key indicators. The legal grant agreement is signed with a PR. Based on requests from the secretariat, the World Bank makes an initial disbursement to the PR. The World Bank is the trustee of the Global Fund. The PR implements the funds directly or sub-contracts with other organizations that provide services. Funds are used to strengthen health systems by improving infrastructure and providing training to those who deliver services. Nearly half of the Global Fund grants are used for the procurement of health products, including medicines and related health products and equipment. The Global Fund is not engaged in direct procurement activities, which are managed and conducted under the responsibility of grant recipients. As the co-ordinating body at the country level, the CCM oversees and monitors progress during implementation. The PR submits periodic disbursement requests with updates on programme and financial progress. The LFA verifies the information submitted and recommends disbursements based on demonstrated progress. A lack of progress triggers a request by the secretariat for corrective action. The PR also submits a fiscal year progress report and annual audit of programme financial statements to the secretariat through the LFA. The CCM may request funding beyond the initially approved two-year period which may be approved by the Global Fund based on progress and availability of funds. As a result of the Global Fund, HIV/AIDS treatment is provided for 2 million people on antiretroviral treatment for HIV/AIDS, tuberculosis treatment for 4.6 million people, and 70 million insecticide-treated bed nets have been distributed to protect

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families from malaria. The Global Fund estimates that 3.5 million lives have been saved so far. Other results include the provision of HIV/AIDS counselling and testing, the provision of basic care and support to orphans and vulnerable children and the training to deliver services for prevention and treatment of HIV/AIDS, tuberculosis or malaria. 6. Resource Mobilization The Global Fund requires unprecedented financial commitments. An estimated USD 15 billion is required each year to prevent and treat HIV/AIDS, tuberculosis and malaria effectively on a global scale. The Global Fund is meant to constitute a major source of this funding. The public sector in donor countries is the Global Fund’s largest source of financing, other sources of funding to supplement such contributions are individuals, businesses and private foundations. The initial system of relying on ad hoc contributions introduced considerable difficulties in providing sustained, predictable support. As a result, the Global Fund has introduced a voluntary replenishment process to increase the predictability of the resource mobilization efforts. The replenishment provides a means for donors to exchange views on the operations and effectiveness of the Global Fund, consider its funding needs and arrive at a consensus on contributions. The role of civil society in resource mobilization is important. Several NGOs have been established since 2004 in the United States, Japan, Europe and Africa, serving the purpose of raising awareness and advocating for increased support for the Global Fund. By 1 December 2008, the Global Fund had received pledges of USD 20.9 billion, signed grant agreements worth USD 10.2 billion for 579 grants in 137 countries, and disbursed USD 6.8 billion to grant recipients. Donors include the United States (USD 5.4 billion), France (USD 2.5 billion), United Kingdom (USD 2.3 billion) and the European Union, Germany, Italy and Japan (USD 1.4 billion each). Private donors include the Bill and Melinda Gates Foundation (USD 650 million) and a group of company partners (USD 135 million). Of the disbursed amount, 60 per cent has been approved for HIV/AIDS, 25 per cent for malaria and 15 per cent for tuberculosis. Nearly 60 per cent of funding went to sub-Saharan Africa, followed by East Asia and the Pacific with 14 per cent, and Eastern Europe and Central Asia with 10 per cent.

DOCUMENT ONE

ONE UNITED NATIONS: CATALYST FOR PROGRESS AND CHANGE CHIEF EXECUTIVE BOARD OF THE UNITED NATIONS SYSTEM, JULY 20051 TABLE OF CONTENTS

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Foreword ......................................................................................................... Executive Summary ........................................................................................ The Millennium Declaration is changing the way the UN system works ....... A. The Millennium Declaration: Responding to a changing world................ B. The urgency of a collective response......................................................... C. A changing United Nations system............................................................ Working together for poverty eradication and sustainable development ........ A. The UN system’s strategy.......................................................................... B. Inter-agency collaboration ......................................................................... C. Addressing the special needs of Africa...................................................... D. Challenges.................................................................................................. Working together to promote human rights, democracy and good governance ...................................................................................................... A. Advancing human rights............................................................................ B. Promoting democracy ................................................................................ C. Strengthening governance.......................................................................... D. Challenges.................................................................................................. Working together to prevent and manage armed conflicts.............................. A. Advancing a comprehensive culture of prevention.................................... B. Managing transitions.................................................................................. C. Protecting the vulnerable: special emphasis on civilians in armed conflict................................................................................................... D. Countering terrorism.................................................................................. E. Challenges..................................................................................................

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Page V The way forward for the UN system............................................................... 252 A. Deepening understanding and better managing knowledge....................... 253 B. Achieving an inclusive, purposeful mobilization of all resources and capacities ............................................................................................... 255 C. Increasing transparency and accountability ............................................... 257 Annex Collaborative initiatives and actions by the organizations of the United Nations system to support the implementation of the Millennium Declaration ............................................................................................ 258 BOXES Box Page Chapter I 1.1. UN System Chief Executives Board for Coordination (CEB)................... 196 1.2. Values and principles of the Millennium Declaration ............................... 197 Chapter II 2.1. The Follow-up to Monterrey ..................................................................... 202 2.2. The ‘Three Ones’....................................................................................... 203 2.3. United Nations Development Group: Coordinating UN country-level support for the Millennium Declaration................................................ 204 2.4. Tracking progress on the MDGs ............................................................... 206 2.5. The Copenhagen commitments to eradicate poverty................................. 208 2.6. Decent work and a fair globalization......................................................... 209 2.7. Coordinated inter-agency action in support of special social groups ........ 209 2.8. Addressing the urbanization of poverty..................................................... 210 2.9. Combatting hunger and poverty ................................................................ 211 2.10. Nutrition and the MDGs ............................................................................ 211 2.11. Education for All ....................................................................................... 212 2.12. Inter-agency collaboration on gender equality and empowerment of women................................................................................................... 213 2.13. Reducing child mortality through immunization....................................... 214 2.14. Global and regional initiatives to improve maternal and newborn health . 215 2.15. Responding to HIV and AIDS: Joint UN approaches in action................. 216 2.16. Addressing the triple crisis of AIDS, food security and governance......... 217 2.17. Working together for environmental sustainability ................................... 218

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Box Page 2.18. Mobilizing the UN system for freshwater resources ................................. 218 2.19. Managing forests and combatting deforestation........................................ 219 2.20. Collaboration on energy ............................................................................ 220 2.21. Coordinating responses to climate change ................................................ 220 2.22. Coordinating responses to natural disasters............................................... 221 2.23. The Doha Development Agenda ............................................................... 222 2.24. Cooperation on commodities..................................................................... 223 2.25. Financing the development goals .............................................................. 224 2.26. Partnerships with civil society................................................................... 225 2.27. Working for the implementation of the Brussels Programme of Action ... 226 2.28. Partnerships for sustainable development of Small Islands Developing States..................................................................................................... 227 2.29. The Regional Inter-agency Coordination and Support Office................... 228 2.30. Inter-agency collaboration on economic development.............................. 229 Chapter III 3.1. Protecting the rights of the vulnerable....................................................... 234 3.2. Electoral assistance.................................................................................... 236 Chapter IV 4.1. Coordination on early warning and preventive action............................... 243 4.2. Curbing transnational crime ...................................................................... 244 4.3. Peacebuilding and development in East Timor ......................................... 245 4.4. Working together on transition in Liberia ................................................. 246 Chapter V 5.1. Working together on the information society ............................................ 253 5.2. Knowledge sharing and information technology in support of the MDGs.................................................................................................... 254 5.3. Report of the Panel of Eminent Persons on UN-Civil Society Relations .. 255 5.4. The Triennial Comprehensive Policy Review of Operational Activities for Development ................................................................................... 256

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FOREWORD Five years have passed since world leaders adopted the Millennium Declaration, affirming both the values they considered essential to international relations in the twenty-first century and the central role of the United Nations in ensuring collective responses to global problems. The 2005 World Summit, to be convened in New York this September, has spurred much reflection on the progress made since then. To prepare the ground for bold action by the Summit, the Secretary-General released earlier this year In Larger Freedom: Towards Development, Security and Human Rights for All. His report exhorts Member States to use the Summit to strengthen the world’s system of collective security, to forge a genuinely global and multisectoral strategy for development, and to intensify efforts to secure human rights and democracy for all peoples. Meeting thereafter in the United Nations System Chief Executives Board (CEB), the Executive Heads of all the system’s organizations expressed strong support for the overall thrust of the Secretary-General’s report and for its basic premise: the need for a comprehensive response to today’s challenges, one which addresses development, security and human rights—and their interlinkages—in a balanced way. Since 2000 the organizations of the UN system have mobilized, individually and collectively, to help advance the Millennium Declaration’s implementation. Drawing on the ‘Road Map’ provided by the Secretary-General towards this end (A/56/326), the CEB has devised common strategies to support intergovernmental follow-up processes and to drive effective inter-agency responses to the Millennium Declaration and related outcomes of other global conferences. More recently, the system has begun to focus also on preparations for the forthcoming Summit. Earlier this month, a major inter-agency initiative produced a comprehensive report on the progress achieved thus far in each of the world’s regions towards the Declaration’s development objectives, The Millennium Development Goals Report 2005. Prepared by the CEB, the present report, One United Nations—Catalyst for Progress and Change, has a complementary aim. The report’s shared reflection elaborates the work of the UN system to help governments meet all of the Declaration’s objectives and considers how to address challenges to further progress on that front. The report shows how the Declaration has brought the UN system together with a new unity of purpose and in a new spirit of cooperation and collaboration. Much of what has transpired in the world since the Declaration’s adoption demands that we now revitalize consensus on the key challenges and priorities ahead—and that we convert that consensus into collective action. The organizations of the UN system stand together poised to adapt and intensify their efforts, with the support of Member States, and on behalf of them and their peoples, to bring the vision of the Millennium Declaration to life.

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EXECUTIVE SUMMARY 1. With this report, the UN System Chief Executives Board for Coordination (CEB) aims to contribute to the preparations for the 2005 World Summit, to take place this September in the General Assembly, five years after the adoption of the historic Millennium Declaration. The report provides an account of how UN organizations are working together to assist countries in achieving the Declaration’s objectives. This common effort is serving to broaden the perspectives of all parts of the UN system and helping them, both individually and collectively, to deepen analysis, expand knowledge-sharing, reinforce synergies and sharpen the focus on results. In short, the Millennium Declaration has demanded and facilitated the evolution of a more coordinated, cohesive and functional UN system. 2. The report concentrates on both accountability and action: on accountability for the UN system’s performance so far in helping countries to implement the Millennium Declaration and, generally, in improving its effective delivery of services; and on adjusting and accelerating action, as necessary, to help countries meet the Millennium Declaration’s objectives. 3. Since the Declaration’s adoption, new orientations and approaches have guided the collective work of the UN system in the key areas of poverty eradication and sustainable development; human rights, democracy and governance; and the prevention and management of armed conflicts. These are illustrated in the body of the report. Yet, the UN system still faces the challenge of fully transforming its diversity and complexity into a source of strength: one that enables its constituent organizations, acting alone or in concert, to respond flexibly and from different perspectives to the evolving international environment and to the changing requirements of Member States. Much more action is needed for the UN system to evolve into ‘One United Nations’—the cohesive force for progress and change that current conditions require and that Member States have demanded, in putting forward the Millennium Declaration. A. THE WAY FORWARD FOR THE UN 4. In this report, the organizations of the UN system resolve to build ‘One United Nations.’ Although not the only multilateral player, ‘One United Nations’ could serve as a unique agent and catalyst of progress, applying its varied strengths to a common purpose. It would both support and build on regional and bilateral cooperation. It would engage in concerted effort with all actors—State and non-State—to advance synergies. Its constituent organizations would together have the ability to attract sustained political support, to formulate coherent policies and to translate those policies into coherent programmes and operations that yield concrete results. It would derive direction from a common set of goals and hold itself accountable for better results. The overall result of ‘One United Nations’, so defined, would be an international environment more conducive to progress and real change in the conditions and quality of life of peoples throughout the world.

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5. Achieving ‘One United Nations’ will require of the UN system specific changes in policy and in practice, similar to those that citizens increasingly demand of their governments. The report’s concluding chapter elaborates three categories of change: deepening understanding and better managing knowledge; achieving an inclusive, purposeful mobilization of all resources and capacities; and increasing transparency and accountability. B. DEEPENING UNDERSTANDING AND BETTER MANAGING KNOWLEDGE 6. A collective capacity to acquire and create knowledge and put it to productive use for the common good is as critical to the efforts of the UN system as it is to individual countries. This means, for the UN system, concerted action to deepen understanding and to manage and share knowledge much more purposefully. On the conceptual level, for example, a compelling need exists to articulate fully the system’s understanding of the linkages between peace and security and development. In the development area itself, UN system organizations need to further together their understanding of how to advance a truly holistic approach to economic and social development: which fully reflects the mutually reinforcing relationship between pursuing the Millennium Development Goals and those incorporated in the wider UN development agenda; which ensures that social objectives are effectively integrated into economic decision-making; and which factors in the challenge of addressing existing inequalities within and among countries. 7. Individual efforts must coalesce into system-wide action to become centres of excellence within and across areas of competence, especially on multisectoral approaches. 8. The UN system must continue to intensify its efforts more effectively to manage and share knowledge and best practices, to better employ information technology and to produce reliable standardized data, all of which facilitate coherent support of decision-making and cogent system-wide strategies for public communication. As part of those efforts, the system needs to promote a system-wide learning culture, rooted in shared values and common objectives. C. ACHIEVING AN INCLUSIVE, PURPOSEFUL MOBILIZATION OF ALL RESOURCES AND CAPACITIES 9. As at the national level, a determination to mobilize all resources and capacities in the most inclusive and purposeful way possible should continue to drive change within the UN system. This means a system-wide commitment to overcome fragmentation and the pursuit of narrow interests; to surmount the obstacles to policy coherence and cohesive action inherent in system structures; to integrate sectoral interventions effectively; and to launch more multidisciplinary and well sequenced responses. 10. Further action on this front must take several forms, which include: promoting the participation of all parts of the UN system, in the pattern of the global conferences; engaging parliaments and local authorities and all forces of civil society in policy development and implementation; ensuring, within and across organizations, that the

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system’s conceptual and standard-setting work and its country-level operational activities proceed in a mutually reinforcing manner; and achieving a much more unified system presence at the country level. D. INCREASING TRANSPARENCY AND ACCOUNTABILITY 11. As it promotes transparency and accountability as principles of good governance at the national and local levels, so must the UN system internalize and apply these principles as the core of what ‘One United Nations’ should embody and convey at the global level. This means a common, system-wide position of zero tolerance for abuses, of openness to scrutiny, and of proactively implementing the most effective and reliable systems for monitoring, evaluation, audit and oversight, including systemwide action to evaluate UN performance in terms not merely of effort, but mainly of real impact in targeted areas. 12. At the 2005 World Summit, Governments should reaffirm their consensus that these are directions in which they wish the UN system to proceed, and they should act deliberately to advance that movement in the system’s different governing bodies. The intergovernmental consensus must entail a strong, renewed commitment to substantive progress on and among each of the Declaration’s three pillars, in order to strengthen the entire multilateral framework for collective action. 13. The Summit will have before it the Secretary-General’s report, In Larger freedom: Towards Development, Security and Human Rights for All (A/59/2005), in which he presents proposals for strengthening efforts to secure for all peoples freedom from want, freedom from fear and freedom to live in dignity, and for enhancing UN effectiveness in these core areas. The UN system’s future work in these areas will be guided by the consensus reached at the Summit, by the directives of the governing bodies of its constituent members and by the ongoing evolution of the international policy and legal frameworks.

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CHAPTER ONE

THE MILLENNIUM DECLARATION IS CHANGING THE WAY THE UN SYSTEM WORKS 1. Its Charter gives the United Nations Organization a comprehensive mission, encompassing the maintenance of peace and security, the promotion of human rights, and economic and social progress. The mandates of the specialized agencies, UN Programmes and Funds and related organizations—which together with the Organization make up the United Nations system—cover a wide spectrum of concerns and areas for international cooperation. Coordination among all these organizations is essential: for maximizing each one’s distinct comparative advantage and for enabling the UN system as a whole to respond effectively to the demands of our times. In the almost five years since its adoption, the Millennium Declaration has demanded and facilitated the evolution—now underway—of a more coordinated, cohesive and functional UN system. This process of change is being propelled by a renewed unity of purpose within the UN system, based on the Millennium Declaration’s shared values and objectives. 2. With this report, the UN System Chief Executives Board for Coordination (CEB) aims to contribute to the preparations for the 2005 World Summit this September, five years after the adoption of the Millennium Declaration. The report provides an account of how UN system organizations are working together to help countries achieve the Declaration’s objectives. In doing so, the report shows how this common effort is serving to broaden the perspectives of all parts of the UN system and helping them, both individually and collectively, to deepen analysis, expand knowledgesharing, reinforce synergies and sharpen the focus on results. 3. The three central chapters of the report highlight the main new orientations and approaches that are collectively guiding the work of the UN system under the Millennium Declaration’s broad themes: poverty eradication and sustainable development; human rights, democracy and governance; and prevention and management of armed conflicts. They also highlight some of the challenges ahead for the UN system in these three areas. An annex provides additional detail on some of the collaborative work by the organizations of the UN system to help advance the Declaration’s implementation. The concluding chapter sets out the key elements for continued progress on that front, including the further changes required of the UN system, in policy and in practice. The report concentrates on both accountability and action: on accountability for the UN system’s performance so far in helping countries to implement the Millennium Declaration and, generally, in improving its effective delivery of services; and on adjusting and accelerating action, as necessary, to help countries meet the Millennium Declaration’s objectives.

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A. THE MILLENNIUM DECLARATION: RESPONDING TO A CHANGING WORLD 4. On the threshold of a new millennium, the world’s leaders convened at the UN in September 2000 to construct a new framework for multilateral cooperation. A universal concord—the Millennium Declaration—renewed hope of greater international unity and solidarity in addressing common challenges. The Declaration established the framework as a set of interrelated commitments and goals, articulated in terms of three pillars of collective action: peace and security, human rights and governance, and economic and social progress. In the development area, the framework included concrete, time-bound targets and performance measures for poverty eradication and sustainable development. Box 1.1. UN System Chief Executives Board for Coordination (CEB) In 1946, the UN Secretary-General established the Administrative Committee on Coordination (ACC), at the request of the Economic and Social Council, to supervise the implementation of the relationship agreements between the UN and the specialized agencies. Over the following decades, as the system grew, ACC became the central body for coordination of the activities and programmes of the organizations of the UN system. Following a reform in 2000, ACC was renamed the United Nations Chief Executives Board for Coordination (CEB), in order to highlight the commitment of the UN system’s Executive Heads to a collective steering of the system's work. The UN Secretary-General chairs the Board, whose other members include the Executive Heads of the specialized agencies of all UN Programmes and Funds, and of related organizations. Specialized agencies ILO ITU FAO UPU UNESCO WMO WHO WIPO World Bank IFAD IMF UNIDO ICAO UNWTO

Programmes and Funding UNCTAD WFP UNDP UNODC UNEP UN-Habitat UNHCR UNRWA UNICEF UNFPA

Related Organizations WTO IAEA

CEB aims to advance coordination and cooperation around common objectives among its member organizations in policy, programme and management areas. It meets twice a year and is assisted by two High-level Committees: the High-level Committee on Programmes (HLCP) and the High-level Committee on Management (HLCM). The High-level Committees are assisted by a network of experts and specialists in different areas of inter-agency work. A jointly-financed secretariat supports CEB and its High-level Committees and monitors for them a network of experts and specialists in different areas of inter-agency work.

5. In many respects, the Millennium Declaration represented the international community’s response to the development and security challenges of a changing global environment. At its core is the commitment of world leaders to make globalization a positive force for all. They recognized that, even as the world has accumulated great wealth, many people remain mired in poverty and deprivation. Across the devel-

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oping world, countries in Africa, Asia and Latin America have made significant strides in lifting their people out of poverty. But for many others, particularly in sub-Saharan Africa, poverty, hunger, illiteracy, infectious diseases, unemployment and environmental degradation continue to pose daunting problems. Compounding these challenges, important differences have arisen since the Declaration’s adoption over the changing nature and sources of conflict, over the most effective way to safeguard security, and over basic approaches to collective security. Box 1.2. Values and principles of the Millennium Declaration In the Millennium Declaration, Heads of State and Government reaffirmed their faith in the United Nations and its Charter as indispensable foundations of a more peaceful, prosperous and just world. Recognizing their collective responsibility to uphold the principles of human dignity, equality and equity at the global level, they stressed that certain fundamental values are essential to international relations in the twenty-first century. These include: • Freedom: Men and women have the right to live their lives and raise their children in dignity, free from hunger and from the fear of violence, oppression or injustice. Democratic and participatory governance based on the will of the people best assures these rights. • Equality: No individual and no nation must be denied the opportunity to benefit from development. The equal rights and opportunities of women and men must be assured. • Solidarity: Global challenges must be managed in a way that distributes the costs and burdens fairly in accordance with basic principles of equity and social justice. Those who suffer or who benefit least deserve help from those who benefit most. • Tolerance: Human beings must respect one other, in all their diversity of belief, culture and language. Differences within and between societies should be neither feared nor repressed, but cherished as a precious asset of humanity. A culture of peace and dialogue among all civilizations should be actively promoted. • Respect for nature: Prudence must be shown in the management of all living species and natural resources, in accordance with the precepts of sustainable development. Only in this way can the immeasurable riches provided to us by nature be preserved and passed on to our descendants. The current unsustainable patterns of production and consumption must be changed in the interest of our future welfare and that of our descendants.

• Shared responsibility: Responsibility for managing worldwide economic and social development, as well as threats to international peace and security, must be shared among the nations of the world and should be exercised multilaterally. As the most universal and most representative organization in the world, the United Nations must play the central role. 6. The complexity of the challenges that the world confronts has sparked renewed international reflection. Various independent panels and commissions of experts and eminent persons have examined a wide range of global challenges and presented innovative approaches for addressing them. The many initiatives that have been launched since the Millennium Declaration’s adoption—and the sense of urgency that has characterized them—reflect a keen awareness of the seriousness of those challenges. At the same time, they testify to the depth of the international commitment to bringing the vision of the Millennium Declaration to life. The United Nations HighLevel Panel on Threats, Challenges and Change called for a new security consensus ‘between alliances that are frayed, between wealthy nations and poor, and among peo-

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ples mired in mistrust across an apparently widening abyss.’ It highlighted the indivisibility of security, economic development and human freedom and the idea that ‘we all share responsibility for each other’s security.’1 The Millennium Project has underscored the need for international cooperation to meet the Declaration’s development challenges and to achieve the Millennium Development Goals.2 The International Labour Organization’s World Commission on the Social Dimension of Globalization has stressed the need for a more equitable set of rules and governance system to bring about a fair and inclusive globalization, which, it emphasized, is in turn crucially important to achieving the objectives of the Millennium Declaration.3 The Helsinki Process on Globalization and Democracy has similarly put forward a wide range of proposals and recommendations for how governments and institutions can shape international affairs in a way that makes globalization more equitable. Other panels and commissions engaged in related reflections include: the Panel of Eminent Persons on United Nations-Civil Society Relations,4 the Commission on Human Security,5 the United Nations Development Programme’s Commission on the Private Sector and Development,6 the World Bank’s Global Programmes Evaluation,7 the International Task Force on Global Public Goods and the Global Commission on International Migration. B. THE URGENCY OF A COLLECTIVE RESPONSE 7. Member States and the communities within them bear the primary responsibility for action to implement the Millennium Declaration. They hold the key to international cooperation that truly delivers. Global intergovernmental cooperation cannot answer every challenge. The UN system alone cannot and should not deal with every international issue. Nonetheless, the UN system can serve as an essential agent of global progress—when it acts with a clear sense of its comparative advantages and with unity of purpose, and when its actions have genuine, far-sighted political support. 8. The world has witnessed important manifestations of unity and political will when nations have acted together, through the UN system, to advance peace and security; address humanitarian crises; develop common frameworks for economic, trade and financial cooperation; and effectively manage many other important areas of interdependence. Such creativity and political will are needed now more than ever. The 1 A more secure world: our shared responsibility, Report of the High-Level Panel on Threats, Challenges and Change, New York, 29 November 2004 (issued as document A/59/565). 2 Investing in Development: A Practical Plan to Achieve the Millennium Development Goals, Millennium Project Report to the UN Secretary General, New York, 2005. 3 ‘A Fair Globalization: Creating Opportunities for All,’ World Commission on the Social Dimension of Globalization, International Labour Organization, Geneva, 2004. 4 ‘We the Peoples: Civil Society, the United Nations and Global Governance,’ (A/58/817 and Corr.1), Panel of Eminent Persons on United Nations-Civil Society Relations, June 2004. 5 ‘Human Security Now: Protecting and Empowering People,’ United Nations Commission on Human Security, August 2003. 6 ‘Unleashing Entrepreneurship: Making Business Work for the Poor,’ UNDP’s Commission on the Private Sector and Development, Report to the Secretary-General of the United Nations, April 2004. 7 ‘Addressing the Challenges of Globalization—An Independent Evaluation of the World Bank’s Approach to Global Programs’, World Bank Operations Evaluation Department, December 2004.

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devastation caused by the recent tsunami in the Indian Ocean underscored the urgency and importance of collective and coordinated international action. The response of the international community shows that it can be challenged to act responsibly and generously. C. A CHANGING UNITED NATIONS SYSTEM 9. As a highly diversified and complex group of organizations, the UN system faces the challenge of transforming its diversity and complexity into a source of strength. This requires a continuing, systematic effort to harness the different capacities and comparative advantages of each organization in a collective endeavour to advance common objectives. With such a deliberate effort, the diversity of mandates and expertise that the system contains can become a unique asset that enables its constituent organizations, acting alone or in concert, to respond flexibly and from different perspectives to the evolving international environment and to the changing requirements of Member States. Indeed, in a globalized world where so many issues are interlinked, the multifaceted character of the UN system presents unique opportunities for applying the multisectoral approaches that are required. The system is working to ensure that the most is made of these opportunities. 10. As they seek to shape and drive change, organizations of the UN system recognize the need to continue to change themselves. As elaborated in this report’s concluding chapter, three crucially important areas of change stand out to enable the system to become a cohesive force for advancing and sustaining progress across the interrelated objectives of the Millennium Declaration: deepening understanding and better managing knowledge; achieving an inclusive, purposeful mobilization of all resources and capacities; and increasing transparency and accountability. 11. While focusing their limited resources on their main strengths, UN system organizations increasingly are forging and participating in partnerships with non-State actors to exploit new opportunities for advancing international cooperation. Intergovernmental processes of consensus-building and policy-making are increasingly being complemented by a growing array of global policy networks that bring central governments together with constituencies—such as local governments, civil society and business — in joint initiatives for policy analysis, action and evaluation to advance the effective implementation of global agreements. 12. In order to effectively implement the mandates entrusted to them, the organizations of the UN system rely on the continued political and financial support of Member States. At the same time, the organizations have a keen awareness of the need to transform their management cultures, in order to sustain a multilateralism that genuinely delivers.

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CHAPTER TWO

WORKING TOGETHER FOR POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 13. Economic and social progress is one of the three pillars of action in the framework for international cooperation established by the Millennium Declaration. In that area, the framework fixes specific, time-bound targets and performance measures for poverty eradication and sustainable development. And it sets eight Millennium Development Goals, each of far-reaching importance: to eradicate extreme poverty and hunger; to achieve universal primary education; to promote gender equality and empower women; to reduce child mortality; to improve maternal health; to combat HIV/AIDS, malaria and other diseases; to ensure environmental sustainability; and to develop a global partnership for development. 14. This chapter begins by setting the development objectives of the Millennium Declaration in the context of the wider UN development agenda. It describes both the UN system’s strategy and inter-agency collaborative work to support the achievement of those objectives. It also covers the system’s efforts to address in this area the special needs of Africa, on which the Millennium Declaration puts a particular emphasis. 15. The Millennium Development Goals (MDGs) must be understood in the context of the UN conferences and summits on economic and social issues. Although these did not originate as a formally linked series of conferences, they shared similar perspectives and processes. Each conference concentrated on a different dimension of development, but always in terms of its impact on and implications for the human person. Each proceeded through a participatory process, engaging all relevant actors in the UN system, all Member States, and an array of non-State actors. Together, these conferences have generated global consensus and shaped the policy orientation of Member States and of the UN system in a wide range of development areas, such as poverty eradication, employment and social inclusion, food security, health, education, environment, human rights, women and gender equality, children, population and human settlements. 16. The inclusive way in which the conferences were conceived and organized became a crucial factor in securing the broad engagement needed to sustain their effective follow-up. Nonetheless, the interconnections among the development challenges confronting states and their peoples proved to require approaches not only global in character, but also multisectoral in concentration. None of the conference outcomes could be enduringly advanced independently of the others. The need clearly existed for a coordinated and integrated follow-up to the whole series of UN conferences, which would come to include the historic Millennium Summit. The leadership exercised by the UN Economic and Social Council in guiding this effort has received—and will continue to receive—the strong support of the Chief Executives Board. 17. Two international conferences that followed the Millennium Summit have helped to round out the UN global development agenda: the International Conference on Financing for Development, convened in Monterrey in March 2002, and the World

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Summit on Sustainable Development, held in Johannesburg in September 2002. Monterrey produced a new global compact that commits developing countries to improve their policies and governance and simultaneously calls on developed countries to increase support, especially by providing developing countries with more and better aid, debt relief and greater access to markets. Johannesburg built a foundation for practical action to implement commitments on sustainable development. This included: a clear programme of action in key areas relating to sustainable resources, and innovative approaches to voluntary partnerships and their links to government commitments. 18. The Millennium Declaration has greatly facilitated the UN system’s effort to achieve coordinated and integrated follow-up to the landmark conferences and summits in the development field. It has helped CEB to expand its focus from programmatic, sectoral matters to include—and indeed focus on—strategic issues of systemwide concern. Since 2001, CEB has organized its work around the themes identified in the Secretary-General’s ‘Road map towards the implementation of the United Nations Millennium Declaration.’ Building on this ‘Road Map,’ CEB has been devising and promoting common strategies to advance the UN system’s contribution to achieving an effective, coordinated follow-up to different aspects of the Millennium Declaration and to related outcomes of other global conferences. In this effort, CEB has aimed both to support intergovernmental follow-up processes and to drive effective interagency responses. 19. In a way that has simultaneously built on and reinforced this inter-agency effort, nearly all of the intergovernmental bodies of the organizations that make up the CEB membership have sought to frame their strategies and policies around a common set of goals. In 2001, for instance, the World Bank’s governing body adopted a multiyear Strategic Framework that explicitly aligned the Bank’s efforts with the goals of the Millennium Declaration. In 2003, the Development Committee reaffirmed the shared commitment of the World Bank and the International Monetary Fund (IMF) to achieving the MDGs, particularly the goal of reducing poverty.8 Similar intergovernmental processes have been underway throughout the rest of the UN system, bringing it together in an unprecedented fashion. A. THE UN SYSTEM’S STRATEGY 20. Three premises have guided the UN system’s strategy to support implementation of the Millennium Declaration’s development objectives. First is the holistic nature of human-centred development and the consequential linkages and interdependencies both among all three pillars of collective action addressed in the Declaration and among its development goals. For example, while the goal of reducing and ulti8

The Development Committee is a forum of the World Bank and the International Monetary Fund that facilitates intergovernmental consensus-building on development issues. Known formally as the Joint Ministerial Committee of the Boards of Governors of the Bank and the Fund on the Transfer of Real Resources to Developing Countries, the Committee was established in 1974. The Committee’s mandate is to advise the Boards of Governors of the Bank and the Fund on critical development issues and on the financial resources required to promote economic development in developing countries. Over the years, the Committee has interpreted this mandate to include trade and global environmental issues in addition to traditional development matters.

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mately eradicating extreme poverty should be understood as central, progress towards it depends heavily on progress towards all the Declaration’s other objectives. Consider how hunger is the single largest contributor to disease, weakening the immune system, reducing capacity to recover from infection and inhibiting achievement of the goals relating to health. Malnutrition has consequences for goals relating to different stages in the lifecycle: it limits school completion for children; reduces labour productivity and jeopardizes employment, and hence poverty reduction, among adults; and increases the risk of degenerative diseases in later life. At the same time, lack of progress in stemming the spread of HIV/AIDS, malaria and tuberculosis will jeopardize improvements in areas such as education, employment and health services. 21. The second premise of the UN system’s strategy is that the achievement of the Declaration’s goals and targets requires sustained and, in most cases, enhanced economic growth. This is particularly so in countries facing the greatest development challenges. The UN system’s strategy has therefore placed a core emphasis on improving the conditions for growth in developing countries. 22. This relates directly to a third basic premise: that the achievement of the Millennium Declaration’s development objectives requires the creation of a supportive, enabling international environment. A successful, pro-development and timely conclusion of the Doha Trade Round and the provision of more aid and debt relief have so far fallen short of the Monterrey vision. The UN system stands united in its commitment to realize that vision. Box 2.1. The Follow-up to Monterrey The Monterrey Consensus established a sustained intergovernmental follow-up process in both the General Assembly and the Economic and Social Council. In addition to considering different financing issues on the annual agenda of its Second Committee, the Assembly, every two years, now hosts a two-day High-level Dialogue on Financing for Development. ECOSOC also holds an annual high-level meeting in spring on different aspects of the Monterrey Consensus with leadership of the World Bank, the IMF, the World Trade Organization and (since 2004) UNCTAD. In line with the innovative and participatory modalities established by the Monterrey Conference, inter-agency support to the follow-up involves close cooperation among all concerned institutions and organizations, and a systematic outreach effort. The Financing for Development Office (FFDO) of the UN Department of Economic and Social Affairs, the World Bank, IMF, WTO, UNCTAD, UNDP and the regional commissions cooperate closely in preparing the follow-up reports for the General Assembly. Within their respective mandates, they also work together to organize multi-stakeholder consultations on the Conference follow-up. Open to Member States and relevant civil society and business organizations, these consultations bring different stakeholders together to strengthen and advance the work underway on each set of issues by official bodies, civil society and private groups.

23. As the Millennium Project Report has pointed out, more aid will need to be provided in forms that can flexibly meet the incremental costs to developing countries of meeting the MDGs, thereby promoting sound governance through longer-term commitments and enabling financing for the recurring costs. In order to ensure debt sustainability, a larger proportion of the additional aid should take the form of grants. At the same time, considerable scope exists for increasing the effectiveness of aid: by

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improving the alignment of aid with national development strategies and priorities, and by aligning donor policies and practices with those of the recipient countries.9 Box 2.2. The ‘Three Ones’ The wide international agreement reached around three core principles to improve coordination of national responses to HIV/AIDS, known as the ‘Three Ones’, exemplifies a successful effort towards harmonization of donor policies, in the spirit of the Rome Declaration on Harmonization, the Paris Declaration on Aid Effectiveness and the Monterey Consensus. Agreed in April 2004 by donor and developing countries, the ‘Three Ones’ amounted to: one agreed HIV/AIDS action framework, which provides the basis for coordinating the work of all partners, one national AIDS coordinating authority, with a broad-based, multisectoral mandate; and one agreed country-level system for monitoring and evaluation. They emerged through a preparatory process initiated by the Joint UN Programme on HIV/AIDS (UNAIDS), working in collaboration with the World Bank and the Global Fund to Fight AIDS, Tuberculosis and Malaria. The ‘Three Ones’ will help enable donor and recipient countries to work together more effectively; they will also help to increase country-level coordination and to enhance efficiency in the use of resources devoted to HIV/AIDS responses. Many partners at the country, regional and global levels have enthusiastically embraced the ‘Three Ones’. In 2004, the UNAIDS Secretariat found that, out of 66 countries examined, 81 percent had up-to-date national AIDS frameworks, 95 percent had national AIDS coordinating authorities and 77 percent had working groups to develop national monitoring and evaluation systems.

24. From these premises, the UN system’s strategy for advancing the Millennium Declaration’s development objectives has proceeded along four components: • Analysis: defining and assessing the policy dimensions of achieving the Millennium Development Goals, based on a consensus among partners for the reforms, investments, financing options and strategies for ‘scaling up.’ • Campaigning and advocacy: collaboration with a wide range of partners, extending well beyond the UN family, to foster a self-sustaining movement, with strong national, regional and international roots. • Operations: goal-driven assistance to address directly the key constraints to progress, guided by the mandates, comparative advantages and resources of the UN system at the country level. •

Monitoring: tracking and reviewing progress towards the MDGs.

25. The Millennium Project has sought to analyze and identify the most promising strategies for meeting the MDGs. Drawing on expertise from a wide array of research institutions, and with the support of many UN system organizations, the Project has put forward practical ways to guide ongoing national and international poverty 9 The Rome Declaration on Harmonization (24-25 February 2003) and the Paris Declaration on Aid Effectiveness (28 February-2 March 2005).

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reduction efforts, including key operational priorities, organizational means of implementation and financing structures. 26. The Millennium Campaign has, in turn, served as the main platform for the UN system’s advocacy strategy in support of the Declaration’s implementation. The Campaign has mobilized and reinforced political support for the Declaration by working with parliamentary networks, local authorities, the media, faith-based organizations, youth organizations, the business sector, NGOs and other entities outside the UN system. The campaign and advocacy efforts have been building broad-based coalitions to promote the MDGs and to work with industrialized countries on raising support for increased aid, debt relief and expanded access to markets, technology and investments. 27. At the operational level, UN organizations have focused on mainstreaming the MDGs into their programmes and activities. The country-owned and countrydriven Poverty Reduction Strategy Papers (PRSPs) and the UN Common Country Assessments (CCA) and UN Development Assistance Frameworks (UNDAF) are all being geared to help maximize the coherence and effectiveness of the system’s support for country-level implementation of the Millennium Declaration. Box 2.3. United Nations Development Group: Coordinating UN country-level support for the Millennium Declaration The United Nations Development Group (UNDG) is one of four Executive Committees established by the Secretary-General in the main areas of UN work, with the others focusing on peace and security, humanitarian affairs and economic and social affairs. Now expanded to include not only UN Programmes and Funds, but also a large number of specialized agencies, UNDG aims to improve the effectiveness and coherence of UN system activities at the country level. It does so by developing policies and procedures to facilitate cooperation among member organizations in analyzing country issues, planning support strategies, implementing support programmes, monitoring results and advocating for change. Responsible for elaborating guidelines for the Common Country Assessment (CCA) and the UN Development Assistance Framework (UNDAF), UNDG is spearheading the effort to shape coordinated operational support to countries in meeting the MDGs.

28. The Poverty Reduction Strategy Papers provide an important link among national public actions, donor support and development outcomes towards meeting the MDGs. They are prepared by governments through a participatory process engaging civil society and involving the World Bank, the IMF and other development partners. As the framework for domestic policies and programmes to reach the MDGs in a given country, the PRSP serves as the basis for concessional lending by the World Bank and the IMF. When formulated before a PRSP, Common Country Assessments provide useful analytical inputs for preparing the national poverty reduction strategy, which itself can then contribute to the UN Development Assistance Framework. 29. The UNDAF represents the collective contribution of UN organizations to addressing identified development challenges at the country level. As a common strategic framework for UN operational activities, UNDAF provides both: an integrated response to national priorities and needs; and the legal basis for detailing the modalities and content of UN work in supporting developing countries. The UNDAF results-

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matrix identifies areas for joint programming and shows how the concrete results of the programmes and projects of each organization will contribute to national development goals. Led by the Resident Coordinator, the UN Country Teams assist the incorporation of the MDGs in national poverty reduction strategies, including through the PRSP process. Inter-agency reflection is now underway on how to enhance the integration of non-resident UN organizations into this process, and, more generally, on how to ensure that development outcomes at the country level benefit from all capacities available within the system, operational and analytical. 30. To complement these efforts, ‘Theme Groups’ provide country-level fora for sharing information on key cross-sectoral areas, such as gender equality, human rights, HIV/AIDS, food security and rural development. These groups help to advance a common vision to shape the UNDAF. They facilitate the efforts of UN Country Teams to promote complementarities, particularly when it comes to furthering the key objectives of country ownership and national capacity. In addition to representatives of UN organizations, members of these groups include governments, donors and civil society. In the specific case of HIV/AIDS, the overall coordinating work of the UN Theme Group steers support for implementation of National Aids Strategies, being provided from within fully-integrated UN Country Team Implementation Support Plans. 31. At the regional level, the five UN regional commissions have contributed significantly to raising awareness; conducted research and policy analysis; and promoted policy dialogues and exchanges of national experiences through their intergovernmental fora. Their regional reports—prepared in cooperation with the UN Secretariat, the specialized agencies and other regional partners—have evidenced both the trends and heterogeneity within regions; analyzed the underlying causes influencing sub-regional divergences; identified good practices; and provided policy perspectives and recommendations for action.10 32. The regional commissions have also fostered and facilitated policy exchanges and knowledge-sharing on key issues that, while relevant to all countries, need to be addressed in ways that take into account the varying circumstances of different regions and countries, such as: relationships among poverty reduction, growth and equity; conditions for a sustained process of poverty reduction; links between economic policies and the social MDGs; the combination of broad-based human capital formation with social protection and specific antipoverty programmes; and policies for addressing inequalities. 33. The regional coordination meetings organized by the Commissions, and called for by the Economic and Social Council, have facilitated harmonization of the UN system’s activities at the regional and sub-regional levels. The meetings provide a mechanism for coordinating the various activities of UN system organizations and strengthening the effectiveness of their technical assistance to help countries integrate the MDGs and other priority objectives into their policy frameworks. 10

ECLAC released Meeting the Millennium Poverty Reduction Targets in Latin America and the Caribbean in December 2002. ESCAP issued its regional MDG report entitled Promoting the Millennium Development Goals in Asia and the Pacific in May 2003. Similar reports have been published or are being published by ECA, ECE and ESCWA.

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34. The annual reports of the Secretary-General to the General Assembly on the implementation of the Millennium Declaration stem from a broad system of monitoring and reporting to track global, regional and national progress towards the MDGs. These reports have provided an overview of progress in implementing the Declaration’s commitments and a comprehensive statistical analysis on progress towards the goals. They have been based on global and regional monitoring by an Inter-Agency and Expert Group on MDG Indicators, coordinated by UN-DESA; on country-level monitoring coordinated by UNDP; and on other inputs from many parts of the system. They have also been complemented by an array of detailed progress reports produced by individual organizations. The most wide-ranging of these is the World Bank and IMF’s annual ‘Global Monitoring Report,’ which provides an integrated assessment of progress on policies and actions needed to achieve the MDGs and related conference outcomes.11 Box 2.4. Tracking Progress on the MDGs Monitoring progress towards the MDGs at the global level requires the collaboration of international agencies and close consultations with national experts and statisticians. The Inter-Agency and Expert Group on MDG Indicators coordinates the efforts of UN organizations, international parties and national statistical services. Coordinated by UN-DESA, the group meets twice a year to review enhanced collaboration on data compilation, methodological development and statistical capacity-building. All specialized agencies of the UN and the regional commissions are members of the group, which also includes other international statistical services, representatives from national statistical offices and experts in selected areas. Lead agencies have been designated by the Secretary-General to steer the data and methodological developments for each of the 48 MDG indicators. The results of this work are reflected in The Millennium Development Goals Report 2005 supplemented by a more extensive on-line report and an on-line database (millenimuindicators.un.org), which contains country-level data for each of the selected indicators, as well as other background data and explanatory material. Maintained by the United Nations, this database comprises the most up-to-date series provided by the designated lead agency for the indicator in question. An annual regional and global analysis of this data is available at the same website. In order to assist countries in monitoring and reporting on the MDGs, and in collaboration with other parts of the UN system, UNICEF developed DevInfo. Released in May 2004, this software tool allows for the collection and analysis of standard and specific user-defined indicators. DevInfo is being used by an ever-increasing number of governments, UN country teams, academic institutions and others to provide standardized and comparable reporting on MDGs, to advocate their achievements through and to develop national institutional capacity.

35. This inter-agency effort has been accompanied by monitoring and reporting on individual MDGs and related internationally agreed goals undertaken by the UN organizations and agencies most directly concerned, under the guidance of their respective governing bodies and with the support of other parts of the UN system. As 11 Global Monitoring Report 2005—Millennium Development Goals: From Consensus to Momentum and Global Monitoring Report 2004—Policies and Actions for Achieving the Millennium Development Goals and Related Outcomes, World Bank.

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noted above, country-level reporting by UN Country Teams has focused increasingly on monitoring MDG implementation. B. INTER-AGENCY COLLABORATION 36. The growing number of inter-agency initiatives in the development area is indicative of the UN system’s commitment to join forces in advancing the economic and social objectives of the Millennium Declaration. The following examples demonstrate the range of collective work being undertaken toward each of the MDGs, with additional detail provided in an annex to this report. 1. Eradicating Extreme Poverty and Hunger 37. The first—and in many ways, over-arching—goal of the Millennium Declaration, to eradicate extreme poverty and hunger, has provided a core focus for the system’s collaborative efforts, at the conceptual and the operational levels. 1.1. Eradicating Extreme Poverty 38. The global conferences established a policy framework for an economically, socially and environmentally sustainable development most conducive to poverty eradication. That frame-work and the Millennium Declaration’s vision of a ‘fully inclusive and equitable’ globalization together have guided UN system support for progress towards eradicating poverty. 39. Decent and productive employment is key to eradicating poverty, and, in this context, the Millennium Declaration focuses especially on the needs and aspirations of young people. Identifying the most relevant demographic and other trends and achieving farsighted targeting of particularly vulnerable social groups are among the main concerns guiding inter-agency collaboration to enhance the effectiveness of the system’s work towards poverty eradication. 40. The Millennium Declaration revolved to ‘develop and implement strategies that give young people everywhere a real chance to find decent and productive work.’ Inter-agency work in this field aims to promote decent work for poverty alleviation and concentrates on unemployed youth as a special group. In addition, an ad hoc interagency task force is coordinating the activities of UN agencies with programmes and young people. The task force aims to convey a clear and consistent message about the need to link investments in young people to achieving the MDGs. In support of the preparations for the 2005 World Summit, the task force will launch an advocacy campaign on ‘The youth face of the MDGs.’ 41. Through tripartite consensus and in close collaboration with other UN system organizations, the International Labour Organization has developed three interlinked concepts to advance decent and productive employment as a broad strategy for eradicating poverty; and the achievement of a fair globalization as a source of global stability and rising living standards.

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Box 2.5. The Copenhagen commitments to eradicate poverty The Copenhagen Declaration and Programme of Action adopted at the 1995 Summit for Social Development emphasized the eradication of poverty as an ethical, social, political and economic imperative. In 2000, at the 24th Special Session of the General Assembly, Member States called for placing poverty eradication at the centre of economic and social development and for reducing by half the proportion of people living in extreme poverty by 2015. This commitment was further embodied in the Millennium Declaration, which resolves to halve , by the same year, the proportion of people living in extreme poverty and the proportion of those suffering from hunger. The Declaration adopted in 2005 at the 43rd session of the Commission for Social Development, on the 10th anniversary of the World Summit for Social Development, called for the restoration of the people-centered approach to development envisioned in the Copenhagen Declaration and for the adoption of policies that link eradicating poverty to fostering social integration and promoting employment strategies. More than that, the Declaration recognized the mutually reinforcing relationship between implementing the Copenhagen commitments and attaining the MDGs, in order to broaden the concept of, and in fact to achieve, poverty eradication. The ten-year review of the Social Summit showed wide consensus that the fight against poverty requires greater coordinated global and national action, and that formulating effective poverty eradication strategies will require recognizing and understanding poverty’s root and structural causes. Member States called for closer working relationships among the UN agencies, Funds and Programmes to adequately address the root causes of poverty and their relationship to employment and social integration. They also called for the integration of macroeconomic and financial policy issues with the realization of the broader social development goals.

42. Social integration, one of the core issues addressed by the Social Summit, is essential for a society that respects every individual. In many places, however, this remains a distant goal and therefore requires intensified efforts to mainstream it into the pursuit of the MDGs. As a result of the social changes brought by globalization, communities worldwide have come to bear enormous pressures. The social ills of increasing inequality, poverty and lack of opportunities have had a forceful, negative impact on community well-being. Social integration has economic, environmental, political, human rights and security dimensions: any attempt to create peaceful societies must foster social integration based on the promotion of human rights, nondiscrimination, equality of opportunity and the participation of all people, taking into account not only the human rights and needs of people living today, but also the rights of future generations. Yet, in many countries, groups with special needs remain marginalized in the political process, even though their participation is critical to address their concerns effectively and, generally, to promote an equitable society. In particular, indigenous peoples, persons with disabilities and the older poor frequently suffer discrimination and the denial of their basic human rights: • Indigenous peoples are often the most marginalized populations in society, deprived of their right to development, including access to education, to healthcare, to water and to participation in the policy processes that affect their lives;

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Box 2.6. Decent work and a fair globalization In response to the request from the General Assembly (A/RES755/2412) to ‘elaborate a coherent and coordinated international strategy on employment’, ILO developed the Global Employment Agenda. This agenda aims to replace employment at the heart of economic and social policy, on the basis of a tripartite strategy engaging governments, business and workers’ organizations in a wide range of actions. It includes proposals for strategic alliances in pursuit of employment objectives with the Bretton Woods institutions and others, including UNESCO, UNEP and the WTO. ‘Decent work’ country programmes—which combines employment creation, protecting fundamental rights at work, strengthening social protection and broadening social dialogue—have become the main tool applied in ILO’s work in the field. This approach to productive employment as the sustainable was out of poverty underpins the policy contribution of ILO to reaching the goal of reducing poverty by half by 2015. It received strong support from the Extraordinary Summit of Heads of State and Government on Employment and Poverty Alleviation in Africa, covered by the African Union in Ouagadougou in September 2004. The Report of the World Commission on the Social Dimension of Globalization, established by ILO, highlighted the importance of decent work and fair globalization as instruments to help ensure that the global economy delivers on development objectives and people’s aspirations. The Report concluded that implementing the Millennium and the Copenhagen Declarations requires complementary action at the national and international levels. It called on ILO and other UN organizations to play a leading role in shaping a fair globalization and advanced recommendations to that end. ILO is actively following up the Commission’s recommendations in its area of competence, including through cooperation with relevant organizations on a Policy Coherence Initiative that addresses growth, investment and employment in the global economy.

Box 2.7. Coordinated inter-agency action in support of special social groups Coordinated inter-agency action essential to improve the situation of special social groups. Inter-agency collaboration has been significant in the lead up to the adoption of the 2002 Madrid International Plan of Action on Ageing; in the ongoing elaboration of the International Convention on the Protection and Promotion of the Rights and Dignity of Persons with Disabilities; and in the continuing work of the United Nations Permanent Forum of Indigenous Issues. For example, the Inter-Agency Support Group on Indigenous Issues has contributed considerable substantive preparatory documentation for the Permanent Forum’s 2005 session, which focused on the MDGs, particularly the first two goals of eradication of poverty and achieving primary education for all. In relation to poverty eradication, the Forum recommended that Poverty Reduction Strategy Papers recognize rights to indigenous land, forest, marine and other natural resources; that the Commission on Sustainable Development take measures to protect water from privatization an other incursions that impoverish communities; and that the policy and practice of the World Bank and other multilateral development banks should be consistent with the international recognized human rights of indigenous peoples and should respect their free, prior and informed consent.

• Persons with disabilities require special focus and legal instruments to protect them from discrimination and to ensure their rights and equal opportunities in society; and

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• The needs of growing ageing populations are of increasing concern, for without reform of the current systems for financing pensions and long-term care, future generations of older persons may be left without adequate social protection. 43. Several UN organizations, including UN-HABITAT, the World Bank and UNDP, are working together to help eradicate poverty in urban areas and to promote sustainable urbanization: that is, to promote the role of cities as engines of economic growth and social development. Box 2.8. Addressing the urbanization of poverty Achieving the MDGs, particularly the goal of halving poverty by 2015, requires that poverty reduction programmes give more attention to urban areas. According to UN estimates, virtually all population growth expected in the world during 2000-2015 will be concentrated in urban areas, and the urban population will rise from 2.8 billion in 2000 to 3.8 billion in 2015. The global population is expected to increase at an annual rate of less than 1 percent per annum, or 0.84 percent over the next fifteen years. Yet, in the less developed regions, where the rural population will grow at only 0.1 percent per annum, the urbanized population will increase at a rate of 2.45 percent per annum. In other words, with urban poverty growing much faster than rural poverty, poverty is being urbanized. UN-HABITAT estimates that today around 40 percent of the world’s population living on less than USD 2 Purchasing Power Parity—roughly 1.2 billion people—are living in urban areas. By 2030 more than half of the world’s poor will be living in cities.

1.2. Eradicating Extreme Hunger 44. FAO, IFAD and WFP are working together to address the immediate and long-term challenges of fighting hunger and achieving food security. 45. In order to strengthen worldwide efforts to fight malnutrition, the UN System Standing Committee on Nutrition (SCN), a partnership among UN organizations, governments and NGOs, is analyzing trends and raising awareness on nutrition issues, galvanizing global action against malnutrition and promoting cooperation among UN agencies and partner organizations in support of national efforts to end malnutrition. 2. Achieving Universal Primary Education 46. Education is key to giving people choices and, fundamentally, to breaking the cycle of poverty. From this perspective, the Millennium Declaration especially highlights the goals of universal primary schooling and of gender equality in primary education—and sets specific targets for their achievement. The goals have helped galvanize inter-agency collaboration and joint initiatives, including strategies for achieving the objectives of Education for All (EFA) by 2015. The UN system strategies towards EFA cover a range of efforts, from collective advocacy, intensified networking and broader partnerships and commitments to resource mobilization and the inclusion of education sector goals within national planning frameworks.

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Box 2.9. Combatting hunger and poverty The three Rome-based United Nations organizations, FAO, WFP and IFAD, are working with a common vision and complementary mandates to end hunger and poverty. FAO provides technical expertise and policy guidance. WFP provides food aid in response to emergencies and contributes to economic and social development, through such programmes as Food for Work and School Feeding. IFAD provides loans and grants to help the rural poor overcome poverty and gain the means to achieve food security. FAO, WFP and IFAD have developed strong collaboration in both operational work and policy development. At the country level, they are assisting smallholder farmers and other rural producers to increase productivity and incomes and to reduce their vulnerability. By addressing the structural causes of food insecurity and poverty, they are helping to create the conditions for more rapid and balanced development. The agencies support an approach that combines food assistance for preventing malnutrition with longer term investments in agricultural production. Through their action, they have provided immediate access to food and improved the livelihoods of populations in need. In the context of emergencies, FAO and WFP carry out needs assessments and help develop a response on food security in coordination with other relief organizations. IFAD supports the efforts of affected peoples to rebuild normal lives, by assisting their transition to rehabilitation and development. The agencies are also working together on policy issues to highlight the centrality of agricultural and rural development to achieving the MDGs. Their joint launch of the Millennium Development Project Report in Rome, in consultation with the Government of Italy, reflects their strong commitment. Symbolizing their close collaboration, FAO, WFP and IFAD presented their views jointly at the Financing for Development Conference in Monterrey and at subsequent discussions in the General Assembly. The three agencies are also working together to support the efforts of African countries within the framework of the New Partnership for Africa’s Development (NEPAD). The three organizations are collaborating within the framework of the International Alliance Against Hunger (IAAH). Established by the World Food Summit: Five Years Later the Alliance advocates for greater political will and practical action to rapidly reduce the incidence of hunger and rural poverty. Core membership in the Alliance also includes the International Plant Genetic Resources Institute (IPGRI) and NGO networks. A UN System Network on Rural Development and Food Security—promoted by FAO, IFAD and WFP—supports the activities of National Thematic Groups within the Resident Coordinator system and enables information exchange on best practices.

Box 2.10. Nutrition and the MDGs In its 5th Report on the World Nutrition Situation (March 2004), the Standing Committee on Nutrition (SCN) makes the case that reducing malnutrition is central to achieving the MDGs, citing evidence that links nutrition to a range of other development outcomes. The Report highlights how a nutrition perspective can strengthen key development mechanisms and instruments, such as poverty reduction strategies, health sector reform, the improvement of governance and human rights, and trade liberalization. The report also advances specific suggestions for including nutrition in programme and policy development and calls on the nutrition community to lead this effort.

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3. Promoting Gender Equality and Empowering Women 47. Assuring equal rights and opportunities of women and men is a central objective of the Millennium Declaration. The Declaration addresses gender equality and the empowerment of women as human rights and as essential instruments for fighting poverty, hunger and disease and for stimulating development that is truly sustainable. It also embodies specific commitments to combat violence against women and to promote implementation of the Convention on the Elimination of Discrimination against Women (CEDAW). And, as described above, it sets a clear target, encompassing all levels of education, for eliminating gender disparities in education by 2015. Box 2.11. Education for all UNESCO is mandated to coordinate EFA partners and to maintain the momentum of collaboration (Dakar Framework for Action, 2000, paragraph 19). A number of initiatives have been set in motion to generate sustained global commitment and support for country level efforts to implement EFA, including: the EFA Global Monitoring Report, now a standard reference document for all partners in the field of education; the Collective Consultation of NGOs on Education for All; national and regional EFA Forums; the annual High-Level Group on EFA; and the Working Group on EFA. The EFA strategy emphasizes eliminating gender disparity in primary and secondary education through the UNICEF-led Girls’ Education Initiative (UNGEI), a ten-year sustained effort to promote girls’ education, which involves 13 UN entities in a wide range of partnerships with civil society organizations and networks. UNGEI focuses intensive action on 25 countries most at risk of failing to meet the goal. The World Bank-led EFA-Fast Track Initiatives has set up a global partnership of donors and developing countries to mobilize supplementary funding and to accelerate progress in low-income countries towards the goal of universal primary education. EFA-FTI focuses on country ownership, support linked to performance, lower transaction costs and transparency. Supported by bilateral donors, regional development banks, and UN organizations, such as UNESCO, WFP and UNICEF, EFI-FTI has improved efficiency in: the allocation of resources to primary education service delivery, system expansion, system financing and spending for primary education. WFP has supported EFA-FTI through school feeding with USD 400 and USD 500 million per year, as part of an Essential Package of interventions for basic education which it promotes in cooperation with other EFA partners. Civil society organizations, notably in Africa, Asia and the Pacific, have increasingly organized themselves to present a coherent voice and to build systematic relationships with governments and international agencies in support of EFA. The Global Campaign for Education plays a strong advocacy role at the international level. Regional and national networks also are emerging or gaining ground, while communities are becoming more engaged in educational issues and advocacy.

48. Targeted, women-specific initiatives and an active and visible policy of mainstreaming gender perspectives in the design, implementation, monitoring and evaluation of all policies and programmes are long-standing priorities for the UN system. The Millennium Declaration’s commitments have given renewed impetus and focus to the close inter-agency collaboration and coordination in these areas. 49. In that spirit, the outcome of the ten-year review of implementation of the Beijing Declaration and Platform for Action, conducted by the Commission on the

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Status of Women in March 2005, reaffirmed, in a special declaration, the Beijing Declaration and Platform for Action. The declaration emphasized that full and effective implementation is essential to achieving the internationally agreed development goals, including those agreed at the Millennium Summit, and it reiterated the crucial importance that Member States attached to the UN system’s collective contribution and engagement towards that end. Box 2.12. Inter-agency collaboration on gender equality and empowerment of women The Inter-agency Network on Women and Gender Equality (IANWGE) is a system-wide network of Gender Focal Points which promotes gender equality and empowerment of women throughout the system. It coordinates follow-up to the Fourth World Conference on Women Beijing 1995), to the outcome of the twenty-third special session of the General Assembly (2000) and to the Millennium Declaration. Comprised of some 60 members representing 25 organizations of the UN system, the network provides a unique forum for exchange of information, experiences and best practices, as well as for the enhancement of collaboration and coordination. Activities are carried out in ad hoc task forces on critical areas of concern, including trade, ICT, water resources management, operational activities and peace and security. The network provides regular opportunities for innovation in methodology development, including through workshops on the implementation of gender mainstreaming.

4. Reducing Child Mortality 50. The Millennium Declaration committed countries to reducing by two-thirds the mortality rate among children under the age of five. Various organizations of the system have launched important initiatives in this field, working with non-UN partners. These initiatives encompass child immunization, improving child health in the home, child survival and healthy newborns. Over the years, UN organizations have scored major successes in immunizing children and reducing child mortality. An interagency working group involving UNICEF, WHO and the World Bank focuses on household and community IMCI (Integrated Management of Childhood Illness). Another multi-agency initiative, the Child Survival Partnership (CSP), formed in 2004, aims at providing a forum for coordinated action to address the main conditions that affect children's health. CSP enables governments and partners to agree on consistent approaches and stimulates concerted efforts towards their implementation. The Healthy Newborn Partnership, an inter-agency group formed in 2000, promotes attention and action to improve newborn health and survival. It also provides a forum for information exchanges on programmatic, research, training and communication issues. The Partnership collaborates actively with other groups working on related objectives, such as the Inter-Agency Group for Safe Motherhood. 5. Improving Maternal Health 51. Universal access to reproductive health care is the starting point for maternal health; it should be pursued as an integral part of efforts to ensure the right of everyone to the highest attainable standard of health. Making reproductive health services

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accessible to all is, in turn, essential to meeting the Millennium Declaration’s goals related to child mortality, HIV/AIDS and gender equality and to meeting its overarching goals of eradicating extreme poverty and hunger. This approach, and the specific target set in the Millennium Declaration for significantly reducing maternal mortality ratios are together providing a renewed basis for engaging the contribution of an array of UN organizations and for adding a new focus to the UN system’s work on women’s rights and on women’s education and health. Inter-agency collaboration covers a broad range, from identifying and disseminating best practices to orienting social investments. Box 2.13. Reducing child mortality through immunization Outstanding progress has been made towards eradicating polio, reducing measles mortality and eliminating maternal and neo-natal tetanus, through such innovative partnerships as the Global Polio Eradication Initiative, the Measles Initiative and the Global Partnership for Eliminating Maternal and Neonatal Tetanus. Worldwide, 784 children were paralyzed by polio in 2003, down from an estimated 350,000 in 1998; the number of endemic countries has declined from more than 125 to six. From 1999 to 2002, measles deaths decreased by 30 percent globally, with a 35 percent reduction in Africa. The number of neonatal tetanus deaths came down from 800,000 worldwide in the 1980s to 180,000 in 2002. By the end of 2005, maternal and neonatal tetanus will be eliminate in 12 of the 57 highrisk countries, with 13 more high-risk countries close to achieving this goal. With the launch of the Global Alliance for Vaccines and Immunization (GAVI) in 2000, more than 500,000 lives are expected to be saved. The Alliance has enabled 40 of the world’s poorest countries to immunize for the first time 35.5 million children against hepatitis B. Six million children have been vaccinated against Haemophilus influenzae type b (Hib) and 2.7 million children against yellow fever. Challenges remain, however, and WHO is working with UNIVEF to develop a new global immunization strategy (Global Immunization Vision and Strategy—GIVS). The strategy concentrates on four main priorities for protecting more people in a changing world: introducing new vaccines and technologies, linking vaccination with other intervention, increasing synergy between immunization programmes and health systems, and addressing immunization challenges in the context of global interdependence.

6. Combatting HIV/AIDS, Malaria and Other Diseases 52. The UN system has mounted joint efforts to address the multi-faceted challenges posed by HIV/AIDS and to advance the Millennium Declaration’s goals of reversing its spread and of reversing the incidence of malaria and other diseases, such as tuberculosis, across a broad range: from awareness-raising, advocacy and resource mobilization to capacity-building and delivery of health services. In fact, across all these areas, multi-agency action has increasingly become the norm. For example, FAO, UNICEF and WFP are collectively supporting the improvement of food and nutrition security and the care for orphans and other children living with HIV and AIDS in southern Africa. In another example, the IFAD-managed Belgium Survival Fund Joint Programme brings together WHO, UNICEF and IFAD to provide assistance to HIV/AIDS orphans in Uganda and elsewhere in Southern Africa.

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Box 2.14. Global and regional initiatives to improve maternal and newborn health The global Safe Mother Initiative was launched in 1987 in response to high levels of maternal deaths in the developing world. A great deal has since been learned about effective and affordable strategies for saving women’s lives during pregnancy and childbirth and about the linkages between maternal and newborn well-being. A number of countries have been able to reduce maternal and newborn deaths by investing in proven, cost-effective interventions and by strengthening health systems. Yet in many countries, women and their newborns continue to die and suffer needlessly. In January 2004, a broad Partnership for Safe Motherhood and Newborn Health was established to reinvigorate and expand the global Safe Motherhood Initiative. Bringing together multilateral and intergovernmental agencies, donors, health professionals associations, NGOs, academic/research institutions, as well as developing countries, the Partnership aims to strengthen and expand maternal and newborn health efforts within the broader goals of poverty reduction, equity and human rights; it aims particularly to address the enormous health disparities that exist between urban and rural populations and between rich and poor. Building on the MDGs on child mortality and maternal health, the Partnership seeks to create synergy among the many stakeholders working to assure the right to safe pregnancy outcomes. Two key priorities of the Partnership are: to ensure that safe motherhood and newborn health are addressed in national development plans, sector-wide approaches, Poverty Reduction Strategy Papers and other resource allocation mechanisms at the country-level; and to advocate for greater attention to, funding for and action on safe motherhood and newborn health at the global level. In February 2004, the Latin American and Caribbean Task Force on Maternal Mortality Reduction, which includes such organizations as WHO, the World Bank, UNICEF and UNFPA, as well as a number of non-UN partners, adopted a joint statement on maternity mortality. The statement identified strategies, priorities and a combination of interventions, including legal and policy changes, an essential package for ensuring skilled attendants and emergency obstetric care; a strong participation of communities in demanding quality care, and monitoring and financial mechanisms on reproductive health, such as the inclusion of maternal mortality in national plans and budgets. The Regional Task Force has helped build commitment to safe motherhood within its member agencies and increased intra-agency support for best practices. It has also provided opportunities for collaboration among its members in other areas. These positive processes are being replicated at both regional and national levels. The African Road Map for the Attainment of the Millennium Development Goals related to Maternal and Newborn Health, adopted by the African Union, is supported by WHO, UNFPA, UNICEF and a broad range of governmental and non-governmental partners. The Road Map aims to provide skilled attendance during pregnancy, childbirth and the postnatal period, at all levels of the health care system, and to strengthen the capacity of individuals, families, communities civil society organizations and governments to improve maternal and newborn health. The main strategies of the Road Map include: improving the provision of and access to quality maternal and newborn health care, including family planning services; strengthening district health planning and the referral system; advocating for increased commitment and resources for maternal and newborn health and family planning; fostering partnerships; and empowering communities, particularly women.

53. Launched by the Secretary-General in February 2003, the Commission on HIV/AIDS and Governance, chaired by the Executive Secretary of the Economic Commission for Africa, has served to complement the work of the UN and other agen-

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cies on transmission and prevention, and to chart the way forward on HIV/AIDS and its linkages to governance in Africa in three interrelated areas: the implications of sustained human capital losses for the maintenance of state structures and economic development; the viability (technical, fiscal and structural) of using antiretroviral (ARV) medication as an instrument of mitigation; and the synthesis of best practices in HIV/AIDS and governance in key development areas, with a view to formulating policy recommendations, in partnership with UN and other agencies. 54. In 2003, concern over the worsening HIV/AIDS pandemic and its severe consequences on food security, public health, educational systems and the institutional capacity in affected countries—particularly in Africa—led CEB to launch a renewed, comprehensive inter-agency effort that would bring to bear against the pandemic all of the system’s knowledge and operational capacity relating to its causes and its socioeconomic effects. Box 2.15. Responding to HIV and AIDS: Joint UN approaches in action The Joint United Nations Programme on HIV/AIDS, or UNAIDS, exemplifies the shared commitment of the UN system to addressing one of the gravest challenges facing humanity. Composed of ten co-sponsoring organizations (UNHCR, UNICEF, WFP, UNDP, UNFPA, UNODC, ILO, WHO, UNESCO and the World Bank). UNAIDS is the main advocate for global action on the epidemic. It leads, strengthens and supports an expanded response aimed at preventing transmission of HIV/AIDS, providing care and support, reducing the vulnerability of individuals and communities to HIV/AIDS, and alleviating the pandemic's impact. At the country level, HIV Theme Groups, under the leadership of the UN Resident Coordinator and supported by the UNAIDS Country Coordinator, work to harness the collective resources of UNAIDS and other concerned UN agencies together to advocate for and empower national leadership and to coordinate the response; to broker and facilitate public, private and civil society partnerships; to generate strategic information (good practices and lessons learned) for policy and programming; to build capacity for tracking, monitoring and evaluating country responses; and to facilitate both access to and the optimal use of resources (financial, technical and human) in support of national priorities. Through the global initiative led by WHO and UNAIDS to ensure three million people globally are on anti-retroviral treatment by 2005 (‘3 by 5’), joint UN efforts have supported universal access to effective, affordable and equitable prevention, treatment and care, including safe anti-retroviral treatment for people living with HIV/AIDS. The global initiative on HIV/AIDS Education led by UNESCO and UNAIDS, as part of its overall prevention strategy, is helping countries to develop comprehensive education, sector-based responses to HIV/AIDS, with a focus on children and young people, especially those who are most vulnerable.

55. The Millennium Declaration rightly recognizes other major diseases—malaria and other old but re-emerging threats like tuberculosis—as the cause of millions of deaths in the developing world, affecting the social and economic fabric of societies and countries’ prospects for development. Within the UN system, WHO has the lead in this area. Also, as noted in the Millennium Development Goals Report 2005, eighty countries are benefiting from over USD 290 million for malaria control, provided through the Global Fund to Fight HIV/AIDS, Tuberculosis and Malaria. Efforts are

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also being expanded to prevent malaria during pregnancy, through mosquito net distribution and preventive drug treatment. 7. Ensuring Environmental Sustainability 56. For the effort to ensure environmental sustainability, the Millennium Declaration sets specific targets, encompassing access to safe drinking water and basic sanitation and improvements in the conditions of life of slum dwellers. In this area, the UN system draws guidance from the principles of sustainability adopted at Rio and reinforced at Johannesburg and from the overall commitment to action embodied in the Millennium Declaration’s targets for integrating these principles into country policies and programmes and for reversing the loss of environmental resources. UN organizations are working together across a span of issues, from helping to forge international agreements on the environment to addressing specific environmental challenges, such as freshwater, water and sanitation, energy, oceans and coastal areas, and consumption and production patterns. 58. As part of this process and under the aegis of CEB’s agencies, inter-agency collaborative arrangements for the follow-up to WSSD—dealing with water and sanitation (UN-Water), energy (UN-Energy), oceans and coastal areas (UN-Oceans), and patterns of consumption and production—were established or strengthened. Box 2.16. Addressing the triple crisis of AIDS, food security and governance Organized in the framework of CEB’s High level Committee on Programmes by eleven organizations of the UN system, and under the leadership of UNAIDS and WFP, a task group collaborated in 2003 on the preparation of a system-wide strategy targeting the interlinked crisis of food security, weakened capacity for governance and AIDS in the Southern arid Eastern African region. The strategy also addressed the connection between food security and livelihoods strategy and agricultural practices, including drought management. At its Fall 2003 Session; CEB approved this strategy and called on its member organizations to draw upon it as a tool for advocacy and communication with regard to the nexus between HIV/AIDS, food security and governance; to adopt it as a guide for action by their country representatives and by UN country teams in areas where AIDS threatens; and to strive to increase financial investments in country-level actions directed at HIV/AIDS in Southern and Eastern Africa. The strategy included a set of programmatic and supporting institutional actions necessary to enable the UN system to advance the achievement of the targets outlined in the Declaration of Commitment adopted at the General Assembly's Special Session on AIDS in June 2001 and, more broadly, in the Millennium Declaration.

59. UN-Water’s World Water Assessment Programme is an integral part of the UN system’s contribution to the realization of the Millennium Declaration commitments to ‘halve, by the year 2015, the proportion of the world’s people who are unable to reach, or to afford, safe drinking water’ and to ‘stop the unsustainable exploitation of water resources, by developing water development strategies at the regional, national and local levels, which promote both equitable access and adequate supplies.’ The main product of the World Water Assessment Programme is the World Water

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Development Report. Released on World Water Day 2003, its first edition, ‘Water for People, Water for Life,’ provided an initial assessment of progress towards achieving water-related goals in the context of the larger pursuit of sustainable development. The report’s second edition will be released on World Water Day 2006. 57. In 2003, CEB adopted a set of approaches and guidelines to orient the system’s follow-up to the World Summit on Sustainable Development (WSSD). The aim was to strengthen system-wide support for the implementation of WSSD outcomes and effectively to integrate them into the follow-up processes for other relevant UN conferences. In so doing, CEB strove to maximize the impact of the WSSD outcomes on progress across the MDGs. Box 2.17. Working together for environment sustainability The Environmental Management Group (EMG), established by the UN General Assembly in 1999 and led by UNEP, is identifying and addressing environmental and human settlements issues that require enhanced cooperation among UN organizations and with non-UN actors: The focus is on environmental education, harmonization of national reporting, environmental governance and environment-related capacity building. UNCTAD is working closely with UNEP, UNDP, the regional commissions and WTO to develop a comprehensive programme for addressing the trade-environmentdevelopment nexus. An example of this collaborative effort is the UNEP-UNCTAD Capacity Building Task Force on Trade, Environment and Development, which is focusing on the particular situations and requirements of small island developing states.

Box 2.18. Mobilizing the UN system for freshwater resources The sustainable management of freshwater resources has long constituted an international goal from the Mar del Plata Action Plan of the 1977 UN Conference on Water to the Millennium Summit, and to the 2002 World Summit on Sustainable Development. Only recently, however; have experts recognized the need for a comprehensive assessment of the world’s freshwater as the basis for more integrated water management. The World Water Assessment Programme (WWAP) was established in 2000 that year as a collective response of the UN system to assist countries in reaching their commitments in this area. Hosted by UNESCO, UN-Water’s World Water Assessment Programme involves 23 UN organizations, along with convention secretariats, donors and other partner entities from outside of the UN system. The programme consists of: • The World Water Development Report (WWDR), a periodic publication that reviews the world’s freshwater resources, provides decision makers with information tools for integrated water resources management and with case studies that illustrate different scenarios of how challenges are being faced in different parts of the world; • A capacity-building component, designed to promote the ability of governments to conduct their own assessment; and

• A Water Information Network and Water Portal, which allows communication among governments and water-related non-governmental groups, and facilitates capacitybuilding and awareness-raising about water.

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60. Efforts to manage forests and combat deforestation and to improve energy efficiency and access are two other key dimensions of sustainable development, which the UN system is increasingly approaching as common priorities for both analysis and operations. 61. A key cross-sectoral issue for the UN system is climate change and its implications for achieving the Millennium Declaration’s objectives of ensuring environmental sustainability and protecting the ecosystem. Individually and collaboratively, UN system organizations are working to raise awareness, to help forge international agreements, to carry out analytical work and to assist countries in mitigating the effects of climate change. Box 2.19. Managing forests and combating deforestation With its resolution 2000/35, ECOSOC created a unique mechanism to support the work of the intergovernmental United Nations Forum on Forests (UNFF): the Collaborative Partnership on Forests (CPF). CPF is a voluntary and informal cooperation of 14 organizations, representing UN organizations and agencies (FAO, UNDP and UNEP); convention secretariats (the UN Convention on Biological Diversity, the UN Convention to Combat Desertification and the UN Framework Convention on Climate Change); international research organizations (the Centre for International Forestry Research; the International Union of Forestry Research Organizations and the World Agroforestry Centre); intergovernmental organizations (the International Tropical Timber Organization and the World Conservation Union; financial institutions (the World Bank and the Global Environment Facility); and the secretariat of the Forum itself. CPF reports its progress to and seeks guidance from the Forum. Based on the comparative advantages of its members, CPF contributes to the policy deliberations of the Forum and promotes and facilitates sustainable forest management worldwide. Collaboration among CPF members covers a wide range of issues, including national forest programmes and action plans; forest law enforcement; reduced-impact logging; community-based fire management; protection of unique types of forest and fragile ecosystems; forest and landscape restoration; rehabilitation and afforestation in low forest cover countries and areas affected by the Indian Ocean Tsunami; monitoring, assessing and reporting; and financial mechanisms. Some of its operational achievements include: • the Sourcebook on Funding Sustainable Forest Management, which makes information accessible through an on-line searchable database; • the Task Force on Streamlining Forest-Related Reporting, which aims to reduce the reporting burden on countries; • the initiatives on Forest-related Definitions, which serves to foster a common understanding of terms and definitions; and

• the Global Forest Information Services, which provides a global internet-based platform for forest information. 62. In the Millennium Declaration, world leaders resolved to intensify cooperation to reduce the number and effects of natural and man-made disasters. This commitment followed the greater awareness engendered by the International Decade for Natural Disaster Reduction (1990-1999) and by the first World Conference on Disaster Reduction (Yokohama, 23-27 May 1994).

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Box 2.20. Collaboration on energy An inter-agency network on energy, UN-energy promotes coherence in the UN system’s activities in the field of energy as an integral part of CEB’s efforts to provide a multidisciplinary response to WSSD and to the Millennium Summit. UN-Energy is open to all UN entities, agencies and programmes working in the area of energy. Current activities focus on promoting energy access and on energy efficiency and renewable energy, both within the framework of decisions taken by WSSD and by the ECOSOC Commission on Sustainable Development.

Box 2.21. Coordinating responses to climate change The 2001 assessment report of the WMO-UNEP Intergovernmental Panel on Climate Change (lPCC) warned that, if carbon dioxide levels are not significantly reduced, the Earth’s average temperature will rise by as much as 5.8 degrees centigrade by 2100. The adverse impacts expected on human life, food security, economic activity, natural resources, physical infrastructure and migration patterns could 'put the achievement of the MDGs at risk, especially among the poorest in developing countries, who often live in environmentally vulnerable areas. The recently released Arctic Climate Impact Assessment reported that the region is warming far more rapidly than previously known—at nearly twice the rate as the rest of the globe.12 Greenhouse gases are projected to make it warmer still, resulting in further large-scale melting of permafrost. According to WMO, 2004 was the fourth hottest year on record. New figures released by Munich Re, a leading re-insurance company and a UNEP Finance Initiative member, projected that in the first ten months of 2004, natural disasters will cost the insurance industry approximately USD 35 billion, up from USD 16 billion in 2003. Yet, steps taken towards the ‘required reduction in emissions of greenhouse gases’ remain inadequate. Major efforts are underway at the intergovernmental level to address climate change. The Kyoto Protocol entered into force in February 2005. The Buenos Aires Conference (COP10) in December 2004 adopted measures to help countries prepare for climate change; furthered cooperation among the Secretariats for the Conventions of Biological Diversity (CBD), the UN Convention to Combat Desertification (UNCCD) and the UN Framework Convention on Climate Change (UNFCCC); and welcomed the Implementation Plan for the Global Observing System for Climate(GCOS) in support of the UNFCCC. UN organizations continue to deal, individually and collaboratively, with aspects of climate change, including energy, agriculture, cleaner production, human health and forests. They are also undertaking collaborative projects through the Global Environment facility (GEF)—sponsored by UNEP; UNDP and the World Bank-which aims to reduce the risks of global climate change, while helping to provide energy for sustainable development.

12 ‘Impacts of a Warming Arctic: Arctic Climate Impact Assessment’, Arctic Climate Impact Assessment Overview report, 2004.

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8. Developing a Global Partnership for Development 63. In the Millennium Declaration, world leaders resolved ‘to create an environment—at the national and global levels alike—which is conducive to development and to the elimination of poverty.’ Towards this end, they committed to ‘an open, equitable, rule-based, predictable and non-discriminatory multilateral trading and financial system.’ Subsequent UN conferences in Monterrey, Johannesburg and São Paulo have emphasized the link between trade and development. By one estimate, the successful conclusion of the Doha Development Agenda could bring 144 million people out of poverty by 2015, significantly contributing to the achievement of the Millennium Development Goals.13 The Bretton Woods institutions and all other UN agencies engaged in development are working closely with the World Trade Organization to help deliver on the promise of Doha. Box 2.22. Coordinating responses to natural disasters The International Strategy for Disaster Reduction (ISDR) The International Strategy for Disaster Reduction (ISDR) builds on the achievements of the International Decade for Natural Disaster Reduction and facilities disaster reduction efforts worldwide. ISDR combines the strengths of key actors through two groups: the Inter-Agency Task Force on Disaster Reduction, which is the principal body for the development of disaster reduction policy and consists of 25 UN, international, regional and civil society organizations; and the Inter-Agency Secretariat of the ISDR, which serves as the UN system’s focal point for promoting coordination of disaster reduction activities in the socio-economic, humanitarian and development fields, as well as for supporting policy integration. The January 2005 World Conference on Disaster Reduction in Kobe, Japan, set out an action plan for 2005 to 2015 and adopted a statement on the Indian Ocean disaster. The Declaration adopted in Kobe expressed the international community’s determination to reduce disaster losses and reaffirmed the role of the UN system in disaster risk reduction. Coordinating responses to the Tsunami disasters In the aftermath of the devastation caused by the recent tsunami, the General Assembly in resolution 59/279 ‘welcomed the effective cooperation between the affected States, relevant bodies in the United Nations system, donor countries, regional and international financial institutions and civil society in the coordination and delivery of emergency relief.’ The Assembly also stressed the need to continue such cooperation and delivery throughout the ongoing relief operations and rehabilitation and reconstruction efforts, in a manner that reduces vulnerability to future natural hazards: In response to the tsunami. UN, UNDP, WFP, UNICEF, UNFPA, UNEP, World Bank, UNHCR, WHO, FAO, UNESCO, UN-Habitat and ITU mobilized rapidly to mount a coordinated response, providing immediate humanitarian relief—food aid, water purification and emergency health kits, sanitation, temporary shelters, supplies for emergency obstetric care and safe blood transfusions, and vaccinations—and coordinating efforts for long-term rehabilitation and reconstruction of the affected areas. 13 Global Economic Prospects (2004): Realizing the Development Promise of the Doha Agenda, World Bank, 2005.

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8.1. Trade 64. Notwithstanding the great potential benefits that developing countries can expect from increased and improved participation in international trade and trade agreements, various constraints need to be overcome at the international and national levels so that trade can serve to address the most pressing human needs, enhancing opportunities for the poor and women, and to advance sustainable development. To support these priorities, UN organizations are actively supporting the efforts of developing countries to build supply capacities, enhance competitiveness and achieve diversification into the production of higher value and higher technological content. Of critical importance is the provision of trade-related technical and capacity building assistance that addresses both short-term needs of implementation and trade negotiations, and long-term needs of strengthening endogenous institutional, human and regulatory capacities. Box 2.23. The Doha Development Agenda At the Fourth WTO Ministerial Conference in Doha, Qatar, in November 2001, Trade Ministers adopted a Ministerial Declaration setting out a broad work programme for the WTO for the coming years. Known as the Doha Development Agenda, the work programme, incorporates negotiations and other activities to address the challenges facing the trading system and the needs and interests of the diverse WTO membership, particularly those of developing and least developed countries. The extensive work programme which has evolved since 2001 includes negotiations in specific areas: agriculture, services, market access for non-agricultural products, traderelated aspects of intellectual property rights, trade facilitation, WTO rules, improvements to the Dispute Settlement Understanding and trade and environment. It also includes highpriority aspects that do not involve negotiations, such as: electronic commerce; small economies; trade; debt and finance; trade and transfer of technology; technical cooperation and capacity building; least developed countries; and special and differential treatment. Progress on the Doha Development Agenda has been mixed, including the disappointment of the 2003 Cancun Ministerial Conference. And the negotiations have extended beyond the original timeframe through January 2005. WTO members achieved a breakthrough in July 2004, when they took decisions on key issues to ensure continued momentum. Framework agreements are now in place for the negotiations on agriculture (including cotton) and non-agricultural market access. Negotiations have bean launched on trade facilitation, and WTO Members have agreed that the Singapore issues—investment, competition policy and transparency in government procurement—will not be negotiated during the- Doha Round. Recommendations have been adopted to advance the, negotiations on services. WTO members have also agreed to a package on development issues and reaffirmed their commitment to fulfilling the development dimension of the Doha Agenda.

65. Many UN system organizations are collaborating to build trade-related capacities, particularly in the least-developed countries, better to integrate them into the global economy and to enable them to reap greater benefits from globalization. A notable example is the Integrated Framework for Trade-Related Technical Assistance, which combines the efforts of IMF, ITC, UNCTAD, UNDP, World Bank and WTO, in partnership with bilateral donors and recipient countries. The Integrated Framework supports national development plans with diagnostic studies to identify and respond to

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trade development needs. Its experience shows that reforming formal trade policies is not enough to stimulate growth. A need exists to address a range of obstacles, including weak institutions, deficient infrastructures and trade barriers in key markets. 66. In the area of commodities, which is the dominant sector in many developing countries, the UN system, with UNCTAD in the lead, has been focusing on constraints originating from the supply side and from difficult market entry conditions. Another focus of the work of UNCTAD, FAO and the International Financial Institutions (IFIs) has been to identify possibilities for increased financing in the commodity sector. 8.2. Aid 67. The goal of developing a global partnership for development provided one of the key platforms for the Monterrey Conference’s response to the concerns of Member States over the continuous trend of decline in official development assistance flows to developing countries, which remains their primary source of external funding. The outcome of the Conference, the Monterrey Consensus, derived from full and extensive collaboration among the United Nations, the Bretton Woods institutions and other major stakeholders, such as the WTO. It aims to create a broad-based partnership between developed and developing countries, in order to explore ways of generating additional public and private financial resources to complement national efforts to mobilize domestic resources. As part of that partnership, the Monterrey Consensus sought to reverse the decline in ODA and to affirm the commitment of developed countries to the 0.7 UN Development target. Box 2.24. Cooperation on commodities The International Task Force on Commodities provides a comprehensive and systematic consultative framework; which enables the sharing of information and the use of complementary expertise among key actors involved in reviewing the commodity situation and in operating commodity markets. The efforts of all interested stakeholders are directed towards a pragmatic approach designed to bring both focus and priority to breaking the cycle of poverty which now traps many commodity producers and commodity-dependent countries. Such a consultative process addresses the wide spectrum of the commodity problématique. In addition to Member States (both commodity-dependent developing countries and interested development partners), partners include: international organizations (FAO, IMF, lTC, UNDP and the World Bank); commodity-specific bodies (international commodity organizations and study groups); the private sector, in particular major corporations engaged in the production, marketing and distribution of commodities; nongovernmental organizations that promote action on commodity issues; and the academic community.

68. Monterrey and the actions taken by donors in its aftermath have had a beneficial impact on the magnitude of official assistance flows.14 Even with recent progress, however, additional funds will be necessary. As a result, along with efforts to establish 14

As a result of commitments undertaken by member states at Monterrey, the decline in the share of ODA in developed-country GNI was reversed and reached 0.25 percent in 2003 and 2004. Moreover, if all commitments are met by the target date of 2006, total ODA is projected to reach USD 88 billion, an increase of almost 50 percent in nominal terms from the total recorded in 2002. If these pledges, together

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Box 2.25. Financing the development goals The Financing for Development Office of the UN Department of Economic and Social Affairs works in full and extensive collaboration with the major stakeholders to prepare analytical reports on the follow-up process to the International Conference on Financing for Development, as mandated by the General Assembly. In addition, the IMF, World Bank and WTO participate actively in the multi-stakeholder workshops and consultations requested by the General Assembly (A/58/230), as part of the follow-up process to Monterrey. These dialogues have taken place in New York and at various regional locations and have dealt with issues, such as: building an inclusive financial sector for development; sovereign debt for sustained development; public-private partnerships for improving the effectiveness of development assistance; improving the climate for private investment; and systemic issues. The International Monetary and Financial Committee (IMFC) and the Development Committee have been particularly involved in monitoring the financial requirements of the Millennium Goals, based on the ‘Global Monitoring reports’ prepared by the staff of the two institutions. In this same context, both committees have given attention to the Assembly’s request to follow up on the call in the Monterrey Consensus for further investigation of the potential for innovative sources of finance. Discussion of innovative sources of financing has been on the agenda of the Development Committee at its meetings since the spring of 2003,15 and on that of the International Monetary and Financial Committee since its annual meetings in 2003.16

timetables to reach the ODA target of 0.7 percent reaffirmed at Monterrey, attention has turned increasingly to finding sources of financing in addition to traditional ODA—now referred to as ‘Innovative sources of financing for Development.’ Since 2003, initiatives by Heads of State, studies from independent experts and technical groups have been reviewing the feasibility and implications of various proposals. Recent meetings of the International Monetary and Finance Committee17 and the Development Committee18 have pursued the matter, and the General Assembly19 has requested that possibilities in this regard be given further consideration. with additional commitments made by DAC member countries to increase ODA after 2006 are met, ODA is projected to reach USD 108 billion in 2010. 15 References to Innovative Financing are found in the following communiqués, 4/17/05, para. 11; 10/2/04, para. 9; 4/25/04, para. 8; 9/22/03, para. 3;and 4/13/03, para. 3. 16 The item is discussed in the communiqués of 4/16/05, para.13; 10/2/04, para. 17; 4/24/04, para. 14; and 9/21/03, para. 17. 17 The IMFC noted in its communiqué for the Spring 2005 meetings that ‘On innovative sources of development financing, such as the International Finance Facility (IFF) and its pilot—the IFF for immunization—global taxes which could also refinance the IFF, the Millennium Challenge Account, and other financing measures, it welcomes the joint IMF and World Bank note outlining progress that has been made. The Committee asks to be kept informed of the further work ahead of the U.N. Summit.’ 18 The Communiqué of the Development Committee for Spring 2005 ‘welcomed further work on innovative sources of development financing. We noted that negotiations among interested parties on the proposed pilot International Finance Facility (IFF) for Immunization are well advanced; and the analysis of technical feasibility of the IFF has created the conditions for the necessary political decisions on participation. We encourage interested donors to proceed with these proposals. Potential participants believe that global tax mechanisms to finance development may be feasible and desirable, while other members do not. We noted the analysis of the economic rationale, technical feasibility, and moderate coalition size needed for some of the global tax proposals. Building upon the existing political momentum in some countries, we

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8.3. Partnerships 69. The Millennium Declaration reaffirmed the resolve of the international community to ‘give greater opportunities to the private sector, non-governmental organizations and civil society, in general, to contribute to the realization of the Organization’s goals and programmes.’ Organizations of the UN system have forged strong partnerships with non-UN development actors on a wide range of issues and are working with the private sector and civil society organizations to help alleviate poverty and achieve the MDGs. An example is the UN’s Global Compact, an initiative of the SecretaryGeneral to engage the business community in a common effort to support 10 internationally agreed principles in human rights, labour, environment and anticorruption. The Global Compact now involves nearly 2,000 companies and other stakeholders, operating in more than 70 countries. Box 2.26. Partnership with civil society The United Nations System Network on Rural Development and Food Security, promoted by FAO, IFAD and WFP, combines the exchange of best practices among network members with country-level theme groups. The groups include civil society, governments, donors and UN system organizations. National Cleaner Production Centres, promoted by UNEP and UNIDO, are working with the multinational chemical corporation BASF on eco-efficiency programmes for small and medium-sized enterprises to access methods of analysis and to introduce new production processes at the highest international standard. The Cities Alliance, promoted by UN-HABITAT and the World Bank, is a global alliance of cities and their partners committed to improving the living conditions of the urban poor, by preparing city development strategies and large-scale slum upgrading programmes.

8.4. Least Developed Countries 70. In the Millennium Declaration, Heads of States pledged to address the special needs of the Least Developed Countries (LDCs); committed to ensuring the success of the Third United Nations Conference on the LDCs in May 2001; and, to this end, outlined the main support measures that industrialized countries should take to contribute to a successful outcome. Building on the mobilization of the system’s advocacy and analytical resources that characterized the Conference preparations, a strong, deliberate effort is now underway to ensure an effective coordination of the system’s support to the Conference’s follow-up.

invite the Bank and the Fund to deepen their analysis of the most promising nationally applied and internationally coordinated taxes for development for the Annual Meetings, as an input into the consideration of a pilot case for interested countries.’ 19 The General Assembly has now requested ‘further consideration to the subject of possible innovative and additional sources of financing for development from all sources, public and private, domestic and external, taking into account international efforts, contributions and discussions, within the overall inclusive framework of the follow-up to the International Conference on Financing for Development.’

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8.5. Small Island Developing States 71. In the context of their ongoing work to help small Island Developing States to address their economic and environmental vulnerabilities and to confront the challenges they face in trade and development and in human and institutional capacity development, UN organizations have provided advisory services and substantive support for implementing the Barbados Programme of Action for the Sustainable Development of Small Island Developing States (SIDS). The Commission on Sustainable Development guides these activities, which have been complemented by a wide range of multistakeholder partnerships. 72. Preparations for the Mauritius International Meeting, which undertook a tenyear review of the implementation of the Barbados Plan of Action, built on this collaborative work and received strong inter-agency support. The meeting itself included a number of agency-sponsored panels and events, which helped produce an outcome that addressed the most pertinent perspectives, policies and strategies to advance the SIDS’ multidisciplinary agenda, including further inter-agency collaboration, to be pursued on an ongoing basis, to help ensure the follow-up to the Mauritius Strategy of Implementation. Towards this end, UN-DESA is devising a plan for coordinated and coherent partnership among UN agencies to secure the effective implementation of the Programme of Action for the Sustainable Development of SIDS, within an interdisciplinary framework for collective action in research and analysis, technical advisory services and support for capacity-building. Box 2.27. Working for the implementation for the Brussels Programme of Action Following the Third United Nations Conference on the Least Developed Countries in Brussels (May 2001), CEB expressed the system's commitment to make an effective, concerted contribution to the implementation and monitoring of the Conferences outcome. The governing bodies of all concerned organizations within the system are actively engaged to integrate the outcome of the Brussels Conference into their respective programmes. In order to facilitate coordinated follow-up, implementation and monitoring of the Brussels Programme of Action, UN system organizations have designated focal points to work with the UN Office of the High Representative for Least Developed Countries (LDCs), Landlocked Developing Countries (LLDCs) and Small Island Developing States (SIDS), which serves as the system’s central coordinating body in this area. Support programmes specifically aimed at assisting LDCs cover a wide range of activities, from human and institutional capacity-building. strengthening of governance systems, building productive capacities and trade-related assistance to environmental protection and reducing vulnerability to natural disasters. A number of collaborative inter-agency initiatives are underway. The Integrated Framework for Trade Related Technical Assistance to LDCs; jointly managed by WTO, ITC,UNCTAD, UNDP, IMF and the World Bank aims to assist LDCs in mainstreaming trade in their national poverty reduction strategies, expand and diversify their trade and become better integrated into the multilateral trading system. Various organizations are also working together to build capacity in LDCs to promote foreign investments and encourage the application of information and communications technology for development. Monitoring and reporting of progress in implementing the Brussels Plan of Action have proceeded through well-coordinated processes within the UN system.

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Box 2.28. Partnership for sustainable development of Small Island Developing States In preparation for the International Meeting to Review the Implementation of the Programme of Action for the Sustainable Development of Small Island Developing States (SIDS} in Mauritius (10-11 January 2005), the United Nations compiled a list of multistakeholder initiatives and partnerships, including various UN system organizations, that support the sustainable development of SIDS. Sub-regional or global in scope, the partnerships cover tourism, energy, biodiversity, water, agriculture, waste management, marine resources, rural development and disaster management and vulnerability. Many involve capacity building and technology transfer as key elements in their implementation.

C. ADDRESSING THE SPECIAL NEEDS OF AFRICA 73. The Millennium Declaration places particular emphasis on the special needs of Africa and calls for focused support to ‘Africans in their struggle for lasting peace, poverty eradication and sustainable development.’ The UN system has shown steadfast commitment to supporting Africans in their development efforts. This support is based on the principle of an Africa-owned and Africa-led development process and provided through international partnerships. 74. Launched in 2001, the New Partnership for Africa’s Development (NEPAD) fully embraced the Millennium Declaration. NEPAD provides a collective, regional framework for political, social and economic renewal. Just as national action to implement the priorities of NEPAD contributes to achieving the MDGs, so does international support for NEPAD contribute to strengthening African countries’ commitment and capacity to achieve the MDGs. 75. NEPAD has become the guiding framework for coordinated efforts by UN organizations to help address the special needs of Africa. The UN system has adopted a three-tiered approach to coordinating its support for NEPAD. At the regional level, the Economic Commission for Africa (ECA) acts as the UN system’s key interlocutor with African countries on NEPAD. ECA’s yearly consultative meetings serve as the principal coordinating mechanism for the activities of UN organizations in Africa. Under a cluster arrangement designed to facilitate inter-agency coordination, UN organizations carry out support activities, working closely with the African Union, the Regional Economic Communities (RECs) and the NEPAD secretariat. And at the country level, UN organizations coordinate their work through the Resident Coordinator System and through existing mechanisms, such as PRSPs and CCAs/UNDAFs. 76. For African countries to meet the Millennium Development Goals, substantially enhanced and sustained efforts by the international community will be required, particularly in improving market access for African goods, increasing ODA and debt relief to African countries, promoting both domestic and foreign investments, and facilitating the transfer of appropriate technology. In shaping priorities for inter-agency collaboration in support of NEPAD, particular attention is being given to human resource development and capacity-building. Their crucial importance in advancing the goals of NEPAD has been recognized by the African Union and highlighted in all re-

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cent studies and reports, from the Millennium Project Report to UNESCO’s Education For All (EFA) Global Monitoring Report and the Commission for Africa Report. 77. The UN system views its support for NEPAD as an integral part of its contribution to implementing the Millennium Declaration. From this perspective, the system has provided essential support for implementing the African Peer Review Mechanism (APRM), which aims to review the performance of African countries in adhering to mutually agreed codes and standards of good governance. And the UN system has intensified assistance in education-related areas, particularly literacy, as key not only to developing the human resources needed to enable Africa to play its proper role in the global economy, but also to promoting democratic governance, fostering intercultural dialogue and mutual understanding, and building equitable knowledge societies. As part of this overall effort, UN agencies have helped to assess the institutional capacities of the Regional Economic Communities (RECs) in human resources development. In other MDG-related areas, the system has extended support in developing and implementing the Comprehensive Africa Agriculture Development Programme (CAADP). It has helped establish the NEPAD cities programme, preparing action plans for cities’ development, including environmental action plans. And, through UN Water/Africa, the system has made a significant contribution to bringing together UN and non-UN stakeholders at the national, sub-regional and regional levels to develop a water facility with a continent-wide portfolio of projects worth 680 million. 78. The UN system is currently reviewing the effectiveness of these arrangements, with two objectives in mind: to shift further the focus of the inter-agency regional consultative mechanism from functioning as a forum for sharing information and identifying issues of common concern to operating as a vehicle for enhanced joint action and strategic coordination; and to align better the mechanism’s programme cluster arrangements with the planning and implementation of sub-regional and country programmes, thereby improving the overall alignment of the mechanism’s work. Box 2.29. The Regional Inter-agency Coordination and Support Office Enhanced cross-sectoral collaboration holds much promise in mainstreaming a number of cross-cutting issues, such as HIV/AIDS, gender and human rights. One notable example of cross-sectoral collaboration among organizations of the UN system in Southern Africa is the Regional Inter-agency Coordination and Support Office (RIASCO), a platform established for innovative programming on food security, HIV/AIDS arid the humanitarian crisis. The programme addresses inter-related objectives, such as the fight against the spread of HIV/AIDS, protection of the vulnerable in crisis situations and the special needs of Africa. The joint location of and programming by the relevant UN system organizations has allowed for the close integration of relief, recovery and development. The complementarities between organizational mandates, expertise and physical inputs are promoting synergy among the UN system partners and improving the effectiveness of their work, both individually and collectively.

D. CHALLENGES 79. As shown in this chapter, the UN system has made significant progress in concerting its support to countries to meet the poverty eradication and development

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goals of the Millennium Declaration. The challenge remains, however, of shaping comprehensive strategies that fully reflect the interlinkages among the MDGs and that effectively integrate the wealth of policy inputs generated by the global conferences. 80. The UN system must, in turn, translate these strategies into policy advice that is concerted, but not monolithic. This means advice that brings to bear the totality of the system’s knowledge and experience to advance holistic, socially conscious approaches to sustainable growth and development; that flows from individual country realities and priorities; and that preserves policy space for developing countries to chart their own integration into the global economy. Beyond that, the UN system must strive to match progress in enhancing policy coherence with an adequate capacity to optimize the sequencing of UN interventions in a given country. The system also needs to continue to strengthen its capacity to mount prompt responses. The UN system’s effective handling of the SARS outbreak and its response to the HIV/AIDs crisis provide good examples of the response capacity that needs to be further developed and applied system-wide. 81. Across organizations and programme areas, the UN system confronts the persistent challenge of linking global, regional and national efforts in ways that maximize their mutual reinforcement and their total contribution to meeting the MDGs. Global goals will ultimately have a real impact on the lives of peoples only to the extent that they translate into country-level and region-wide policies and priorities. By the same token, regional and country-level experiences and requirements must consistently inform global policy development. Box 2.30. Inter-agency collaboration on economic development The slow progress made by some countries and regions in poverty eradication and sustainable development underscores the need for the UN system to give renewed emphasis to enhancing policy coherence and operational coordination in support of accelerated economic development. Under the auspice of CEB/HLCP, work is underway on a UNIDO initiative to elaborate an MDG-based common agenda for collaborative work among organizations of the UN system working in the field of economic development. An interagency task force has been established and is now engaged in identifying priority areas for collaboration, developing a result-oriented and time-bound work plan, and setting up a consultative process to fully harness the capacities and comparative advantages of the organizations of the system in support of accelerated economic development, focusing in particular on Africa and the least developed countries.

82. The potential for such integration represents a powerful comparative advantage of the UN system, one which could yield significant increases in effectiveness and real impact if fully exploited. Building on country- and regional-level conditions and requirements, the UN system must endeavour to achieve a closer integration of its operational activities with its conceptual and analytical work. 83. At the country level itself, the UN system must continue to work to apply approaches to supporting the implementation of the MDGs that are genuinely demanddriven; to ensure that monitoring and evaluation policies and practices lead to systematic accumulation and application of lessons learned to be shared system-wide; to broaden partnerships with key development actors; and to harmonize its efforts with those of the donor community, civil society and the private sector. In all of these ar-

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eas, true country ownership of development cooperation in meeting the objectives of the Millennium Declaration is key to progress. The UN system must go beyond simply adhering to perceived country priorities and, instead, work purposefully to help strengthen national capacities for setting those priorities and effectively lead the development cooperation effort. The system should come to perceive this task as a way to exploit one of its unique comparative advantages in relation to other development actors and as an important responsibility for which it is uniquely equipped. 84. Promoting gender equality and the empowerment of women is another major, and in many ways, unique responsibility for the UN system as a whole. In this area, the primary focus must be on education: the UN system must take bold steps to address the challenges impeding access to education for girls and to ensure that good quality, gender-sensitive education and equal opportunities are made available to all. Beyond education, the empowerment of women must become an integral component of efforts to advance each of the MDGs and of policies and activities across all dimensions of the Millennium Declaration. 85. Although not covered by a specific MDG, promoting employment is fundamental to eradicating poverty. As stressed in the Secretary-General’s report for the High-Level segment of the forthcoming ECOSOC session (E/2005/56), the power of the poor to extricate themselves from poverty, disease and misery lies in productive employment and decent work. The UN system must strive to ensure that global, regional and national policies are re-directed to and refocused on productivity-enhancing investments and policies designed to generate employment for unskilled and semiskilled labour, in both rural and urban areas. Poverty reduction strategies, such as the PRSPs, should recognize the critical role of employment and the need to enhance the human capital of the poor, particularly by increasing access to education (especially primary and secondary), skills and healthcare; improving physical infrastructure; easing access to credit; and creating social safety nets. 86. Another major challenge for the UN system is to mobilize and integrate more fully its scientific and technological capacities into its support to countries for achieving the MDGs. This relates, in turn, to the challenge of bringing more fully to bear on the pursuit of the MDGs the policy guidance generated by the World Summit for Sustainable Development and the World Summit on the Information Society. Both have stressed the key importance of applying science and technology and innovation in achieving a sustainable development process. 87. The impact of trans-boundary issues on the pursuit of the MDGs also requires greater system-wide attention. Particularly relevant in this regard are the development of transport networks in land-locked and poor regions; the integrated management of international rivers, basins and lakes aimed to achieve environmental sustainability; the fight against air pollution; and the rational use of energy. The nature and urgency of these objectives underscore the need further to reinforce inter-agency cooperation not only at the global level, but also at the regional and sub-regional levels. 88. Current trends indicate that many parts of Africa, especially sub-Saharan Africa, lag significantly behind in achieving the MDGs. Many encouraging signs exist, however, at the regional level and at the international level, which have seen new and potentially major initiatives. Taken together, they suggest that the development scenario in the region may be poised towards significant change. Building on its historic

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engagement in African development, the UN system should situate itself as Africa’s main partner in helping national and regional institutions to take full advantage of these new opportunities for significant progress. The UN system’s capacity to do so should be rooted in: stronger inter-agency collaboration, so as to minimize duplication and better optimize the use of resources; enhanced policy coherence and operational coordination, focusing on capacity and institution-building; and a continuing systemwide effort to mobilize resources to support national progress and the initiatives, programmes and institutions of the New Partnership for Africa’s Development. 89. In his report to the 2005 World Summit, In Larger freedom: Towards Development, Security and Human Rights for All (A/59/2005), the Secretary-General presents various proposals to surmount challenges in implementing the development aspects of the Millennium Declaration—to secure ‘freedom from want.’ The decisions taken by Member States at the Summit in response will guide the ongoing efforts of CEB to drive inter-agency coordination and collaboration in this area.

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CHAPTER THREE

WORKING TOGETHER TO PROMOTE HUMAN RIGHTS, DEMOCRACY AND GOOD GOVERNANCE 90. The Millennium Declaration commits the nations of the world ‘to promote democracy and strengthen the rule of law, as well as respect for all internationally recognized human rights and fundamental freedoms, including the right to development.’ In it, world leaders resolve ‘to strengthen the capacity of all our countries to implement the principles and practices of democracy and respect for human rights.’ They also commit ‘to work collectively for more inclusive political processes, allowing genuine participation by all citizens in all our countries’ and ‘to ensure the freedom of the media to perform their essential role and the right of the public to have access to information.’ These closely interconnected commitments have required integrated approaches and actions by all parties and challenged the UN system to set the pace. This chapter covers the system’s work underway in terms of three interlocked and mutually reinforcing objectives: advancing human rights, promoting democracy and strengthening good governance. A. ADVANCING HUMAN RIGHTS 91. The Universal Declaration of Human Rights and the system of human rights treaties together provide a comprehensive framework for action by Member States and by the organizations of the UN system. Within this framework, the UN system contributes to advancing human rights by: • promoting the signing and ratification of human rights-related international treaties; •

supporting the UN human rights mechanisms, both governmental and expert;

• assisting in the development and clarification of human rights norms and standards; •

addressing issues of impunity, particularly during, but also after conflict;

• extending assistance to governments and civil society organizations in promoting and protecting human rights; •

supporting human rights education programmes;

•

helping to develop and monitor the independence of the judiciary;

• promoting women’s human rights and the elimination of violence against women, including through assisting the effective implementation of the Convention on the Elimination of Discrimination Against Women;

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• increasing knowledge of governments, civil society organizations and UN partners in the practical application of human rights instruments to advance public health, particularly child and adolescent health and reproductive health; • promoting greater awareness of the links between human rights, gender and HIV/AIDS, in order to strengthen responses to the pandemic; and •

extending support in respect of prison and detention centre monitoring.

92. In response to the Millennium Declaration, the UN system has initiated a major renewed effort to mainstream human rights in its activities and programmes and to pursue a rights-based approach to development. 93. To achieve greater coherence in UN efforts to build national systems of human rights protection, the Office of the High-Commissioner for Human rights (OHCHR) and its UN system partners are pursuing the ‘Action 2 Initiative,’ put forward in the Secretary-General’s 2002 report on UN reform. Action 2 seeks to foster a common understanding of the linkages between human rights, development and humanitarian assistance throughout the UN system. It has led to the establishment of thematic groups dealing with human rights issues in UN country teams and has promoted joint programming to support national efforts to foster a culture of human rights. It also aims to support Member States in the ratification of human rights treaties. As part of Action 2, human rights advisers have been assigned to a number of UN country offices, in order to enhance assistance by UN country teams in creating and strengthening national systems of human rights protection. In a related effort, steps are being taken to enhance OHCHR’s capacity to train UN country teams. 94. The Millennium Declaration puts a strong emphasis on protecting the vulnerable. Since its adoption, inter-agency collaboration on that front has intensified, particularly in protecting the human rights of women, indigenous peoples, children and migrants. (See also box 2.12. Inter-agency collaboration on gender equality and empowerment of women.) 95. The UN and many of the concerned specialized agencies have actively pursued ways to harmonize and render more effective the various monitoring mechanisms mandated to review the implementation of State Parties’ obligations under human rights treaties, including through more integrated reporting. The ILO, for example, is reviewing its supervisory system, with a view towards modernizing and strengthening it. UNESCO has recently adopted a new human rights policy and is currently reviewing the functioning and effectiveness of its supervisory systems. WHO is developing a comprehensive policy framework for health and human rights, and it has initiated national activities to assist Member States in effectively implementing the recommendations of treaty bodies on health matters, particularly in relation to the Convention on the Rights of the Child and the Convention on the Elimination of All Forms of Discrimination Against Women. The UN system is actively promoting mutual reinforcement among the different oversight mechanisms. 96. As evident in the previous chapter, a rights-based approach to development has increasingly guided the work of UN system organizations and inter-agency collaboration in both development and human rights. From the perspective of the system’s human rights work, notable examples include: the technical assistance provided by OHCHR; the ILO’s collaborative Programme for the Elimination of Child Labour

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(IPEC); UNICEF’s and inter-agency work on the protection of children’s rights; the joint programme of OHCHR and UNDP on Human Rights Strengthening (HURIST); WHO’s focus on the protection and fulfilment of health-related rights of children and adolescents; UNFPA’s work on reproductive health and rights; the establishment by FAO member states, with the support of OHCHR, of an Intergovernmental Working Group, which adopted Voluntary Guidelines to achieve ‘the progressive realization of the right to adequate food in the context of national food security,’ and the joint implementation by UN-Habitat and OHCHR of the UN Housing Rights Programme, as part of the Global Campaign for Secure Tenure. Through inter-agency initiatives such as these, which often cut across institutional boundaries, UN organizations are acting to build synergies among their respective mandates and strengths to optimize impact. Box 3.1. Protecting the rights of the vulnerable Gender. Collaboration across the UN system on gender has grown in the context of system-wide preparations for the Beijing Conference and its aftermath. The focus has been on the advancement of women and on implementing the Convention on the Elimination of Discrimination Against Women. (See also Box 2.12. Inter-agency collaboration on gender equality and empowerment of women.) Reproductive health and population. To advance the right to health in vulnerable populations, the UN system has established an inter-agency project, Strengthening Voices for Reproductive Health, which works to support governments and their partners in improving the quality of reproductive health care through empowering communities, particularly women and young people. The project is being carried out by an inter-regional partnership among ILO/STEP, UNICEF and WHO, under the leadership of UNFPA. It focuses on increasing users' demand for quality services through rights-based, gender-sensitive participatory mechanisms, which strengthen women’s voices to dialogue with health-service providers. Indigenous peoples. An informal contact group on indigenous peoples was established in the early 1990s, after the adoption of the ILO’s Indigenous and Tribal Peoples Convention and the UN's pioneering work in this field. As a follow-up to the 1993 World Conference on Human Rights, the UN established the Permanent Forum on Indigenous Issues in 2001 to coordinate relevant system-wide actions. The Permanent Forum has now completed the first three years of its mandate, with a unique structure, composed of equal parts of government representatives and representatives of indigenous peoples. The InterAgency Support Group on Indigenous Issues assists the Permanent Forum in its work. Children. Through collaboration with a wide range of actors, the UN system has made progress in building a worldwide culture of protection of children and youth. It has contributed to raising national standards, in areas ranging from children and armed conflict, to combatting the sale of children, child prostitution, pornography and violence against children. Current efforts emphasize building systems of protection through improved legislation, attitudinal change and children's own knowledge and skills. Migrants. Considerable work has been ongoing within and between parts of the UN system in close collaboration with regional institutions, to protect migrants and their families. A growing awareness exists of the threats to human rights and dignity from the increased trafficking of migrants, resulting in an increase in modern day slavery. Coordination among different parts of the system focuses on both the management of migration and on ways to combat trafficking.

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B. PROMOTING DEMOCRACY 97. In the same year that Member States pledged in the Millennium Declaration to strengthen their capacity to implement the principles and practices of democracy, the General Assembly adopted a comprehensive resolution (A/RES/55/96) providing extensive guidelines on principles and processes that should orient Member States in promoting and consolidating democracy.20 Pluralism, the protection of all human rights and fundamental freedoms, strengthening the rule of law, an electoral system that provides for the free and fair expression of the people’s will, a legal framework that enables wide participation of civil society, good governance as defined in the Millennium Declaration and the promotion of sustainable development are all highlighted in the resolution, each in its own right and as linked, integral components of the democratic process. 98. These pledges and guidelines have provided new momentum and further direction to inter-agency collaboration to support the spread of democracy and strengthen democratic institutions, in ways that help Member States reinforce and operationalize the key linkages stressed by the Assembly. This collaboration has been most visible in UN support for the rebuilding of civil, political and judicial institutions and its electoral support to countries emerging from crisis and conflict. Many UN organizations have expanded the range of their activities in this area, focusing on different, but related aspects of capacity-building. 99. In more than 85 countries, UN organizations have provided various forms of electoral assistance, covering different aspects of the electoral process: from voter education programmes, electoral monitoring and observation to providing essential information on the conduct of elections. 100. Another key aspect of the system’s contribution to building and strengthening democratic institutions is the provision of support to civil society organizations, such as human rights watchdog groups, trade unions and employers’ organizations, and sports organizations that help foster youth participation. At the same time, NGOs have increasingly become active partners of governments and the UN system in providing technical assistance and essential services. (See also Box 2.26. Partnerships with civil society.) 101. The UN system has given special attention to supporting the active participation of youth in the policy dialogue and decision—making processes taking place at the national and local levels. In the recent period, the pursuit of the Millennium Development Goals has provided a main focus for this effort. In different countries and regions, particularly Southern Africa and East Asia, UN agencies have been helping young people: to identify projects that they could implement themselves to contribute to the achievement of the MDGs; to initiate campaigns to create awareness of the

20 In that resolution, the Assembly noted a wide range of regional and inter-regional initiatives to advance democracy, including the Warsaw Declaration of the Community of Democracies that counts more than 100 country signatures (see A/55/328, annex I). In 2002 the Community endorsed the Seoul Plan of Action (see A/57/618, annex I), which listed the essential elements of representative democracy and set forth a range of measures to promote it.

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MDGs; and to mobilize support for the MDGs from community groups, civil society organizations and local institutions. Box 3.2. Electoral assistance The electoral assistance provided by the UN system can be grouped into three categories: technical assistance; the organization and conduct of elections; and observation or monitoring of elections and participation, where elections are expected to playa significant role in the peace-building phase of political negotiations. While technical assistance tends to be provided in politically stable contexts, the organization and conduct of elections takes place almost exclusively in post-conflict conditions. Cases where a major peacekeeping and peace-building mission has included an electoral assistance component have been increasing. Recent examples are Afghanistan, the Democratic Republic of the Congo, Iraq and Sierra Leone. The United Nations Department of Political Affairs (UN-DPA) serves as the first formal contact point for receiving requests for electoral assistance. The Electoral Assistance Division of UN-DPA assists in evaluating these requests, coordinates the provision of electoral assistance by the UN system and ensures a consistent application of standards for the duration of a given project. The Department collaborates with UNDP, whose field presence facilitates timely responses to electoral assistance requests and the mobilization of resources to meet them. Other UN partners include the Office of the United Nations High Commissioner for Human Rights (OHCHR), the United Nations Volunteers Programme (UNV), the United Nations Office for Project Services (UNOPS) and the Department of Peacekeeping Operations (UN-DPKO), when peacekeeping missions have an electoral component.

102. A common objective of UN system organizations is to support national efforts to further freedom of expression and democratic debate. Different UN organizations are carrying out extensive work toward these ends, particularly UNESCO and UNDP, working closely with other institutions such as the Inter-Parliamentary Union. UNESCO has pursued its work on strengthening the media from the same perspective. C. STRENGTHENING GOVERNANCE 103. At the Millennium Summit, world leaders highlighted the key role of effective, transparent and accountable governance in eradicating poverty and achieving the other objectives of the Millennium Declaration. In many parts of the world, citizens have increasingly demanded: a stronger voice in public policy; improved delivery of services; and greater openness and accountability in the way that governments function. Many governments have responded by: introducing reforms; strengthening public institutions; broadening citizen participation in governmental processes; and striving to deliver more and better services, particularly to the poor and most marginalized. 104. The work of UN organizations in this area focuses on capacity-building to advance: decentralization; transparency and accountability; ‘engaged governance,’ which focuses on mainstreaming citizen participation in public policy; the application of information and communications technology (ICT); and strengthened capacities for data gathering and statistical analysis.

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105. Decentralized governance has increasingly drawn recognition as a key means of empowering local communities to fight poverty and to improve the delivery of essential services. UN agencies have supported decentralization in various ways—from providing technical advisory services and helping to enhance institutional and human capacities to supporting knowledge sharing, information exchange and the dissemination of best practices. Examples include: • Inter-agency collaboration with the UN Centre for Regional Development to support government decentralization programmes, including on regional development planning and implementation, through training and skills-upgrading of public sector employees;21 • UN-Habitat implementing campaigns, global programmes, regional and technical cooperation projects and other initiatives to improve urban governance in more than 40 countries, with the ultimate goal of improving the lives of slum dwellers; • UNICEF, in partnership with the UN and UNFPA, helping raise awareness of the importance of birth registration and strengthened civil registration systems; and • The collaborative work of OHCHR and UNDP designed to identify and to draw lessons from good governance practices that have had an impact on the promotion of human rights. 106. UN organizations have engaged in related efforts to help countries promote transparent and accountable governance, with some key examples, including: • UNDP devoting more than half of its global technical assistance expenditures to activities in this field and supporting efforts in 135 countries to build national capacities for improved and accountable governance; • the World Bank’s support for broad public sector governance reforms in many countries, through the strengthening of public financial management, public administration and accountability, and institutional checks and balances; and • IMF’s support for increased transparency and accountability in public sector governance, through larger budgetary outlays and monitoring government expenditures on poverty eradication programmes, as well as the provision of technical assistance in such areas as tax policy and administration, both in order to generate the resources needed for poverty eradication. 107. The UN Secretariat, UNDP and ECA are stepping up support for the efforts of African governments, regional bodies and the NEPAD Secretariat towards transparent and accountable governance in Africa. A recent study by ECA, Striving for Good Governance in Africa, found that electoral processes in Africa have become more transparent, voter participation has increased to a high level and political parties have 21

The United Nations Centre for Regional Development (UNCRD), established in 1971 in Nagoya, Japan, conducts research and training in local and regional development, targeting developing and transitional economies. The Centre’s programmes focus on socially and environmentally sustainable development.

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grown stronger.22 The study also underscored the need for improvement in such areas as tax evasion and corruption; reform of the police and military; and independence of electoral commissions. It called for urgent action to strengthen parliaments, preserve judicial autonomy, improve public sector performance, support the development of professional media, encourage private investment and decentralize service delivery. At the regional level, UN system activities have included technical and advisory support to the African Peer Review Mechanism (APRM) of the African Union and assistance to the African Governance Forum (AGF) in mobilizing governments and civil society to build networks of African practitioners engaged in governance. 108. To help ensure that institutional and regulatory frameworks are in place to guard against corrupt practices, the UN Office on Drugs and Crime (UNODC) has launched a global programme, in the context of the follow-up to UN Convention Against Corruption. With the World Bank, UNDP, OECD, regional development banks and bilateral development agencies, UNODC has initiated the establishment of the International Group for Anti-Corruption Cooperation (IGAC) to enhance coordination, undertake joint activities and develop a database of past, current and future anticorruption projects and activities. 109. ‘Engaged governance’ is another key ingredient in advancing poverty eradication and broad-based development by promoting greater participation of citizens and civil society institutions in public governance. In many countries, policy-making is no longer confined to representative government and now engages a wide spectrum of civil society institutions. UN system organizations have supported broader citizen participation in governance by providing technical and advisory services and other forms of assistance; by promoting information sharing and dissemination of good practices; and by fostering partnerships with the private sector and civil society organizations. A noteworthy initiative in this regard is ILO’s ‘Practical Guide for Strengthening Social Dialogue in Public Service Reform,’ which serves as a key instrument in the training of public service managers and other civil servants involved in reform programmes. 110. UN organizations have actively promoted the use of information and communications technology (ICT) as a tool for strengthening public sector management and for improving the quality and delivery of public services: • The United Nations Online Network on Public Administration and Finance (UNPAN), managed by UN-DESA, facilitates dialogue among various stakeholders, expanded collaboration among governments and access to research, training practices, methodologies and technical assistance projects in the field of public administration;23 • UNCTAD is strengthening the debt management capacity of developing and transition economies through the use of a computerized debt-management system, which enables the concerned government ministries to establish a complete and up-to22

Striving for Good Governance in Africa, United Nations Economic Commission for Africa, Addis Ababa, 2005. 23 Committed to integrity and excellence, UNPAN is designed to promote the sharing of knowledge, experiences and best practices throughout the world in sound public policies, effective public administration and efficient civil services, through capacity-building and cooperation among the Member States, with emphasis on South-South cooperation.

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date debt database, to provide timely and accurate debt statistics and to undertake appropriate debt analysis; • A UN-DESA assistance programme on strengthening parliamentary information systems in Africa started in pilot form in a number of countries and is now expanding to the whole region; • In partnership with the African Training and Research Centre in Administration for Development (CAFRAD) and the NEPAD Secretariat, UN-DESA is pursuing an e-Africa initiative to improve the capacity of African governments to make use of ICT for effective governance;24 • SMART (Simple, Moral, Accountable, Responsible and Transparent) governance, a World-Bank supported programme in Andhra Pradesh, India, makes use of the Internet to implement such reforms as ‘one-stop shops for citizen services’ and digital registration of deeds; and • The UN Centre for Regional Development is helping improve the skills and knowledge of African civil servants in ICT development and applications through training. 111. Finally, UN organizations have joined forces to support countries in building statistical capacity, particularly in the analysis and monitoring of progress towards the achievement of the MDGs. (See also Box 2.4. Tracking progress on the MDGs.) Examples of collaborative work in this area include: • The UN, UNDP, World Bank, UNFPA and UN-Habitat have teamed up with governments, bilateral donors and civil society organizations to conduct training in such areas as the preparation of MDG indicators, use of alternative data sources and data analysis and methodologies; • ECA is helping administer a comprehensive set of indicators in 30 African countries in order to capture major data on governance, including political representation, institutional effectiveness and accountability, economic management and corporate governance; • The World Bank, the UN, UNDP, UNFPA and other system organizations have joined OECD in the project, ‘Partnership in Statistics for Development in the Twenty-First Century’ (PARIS 21), which aims to improve statistical support for monitoring development goals; • Several UN organizations are working together to plan for the next census round, from 2005 to 2010; and • A new global partnership—Health Metrics Network—has been launched to facilitate better health information at the country, regional and global levels. 24

CAFRAD is a Pan African intergovernmental organization, established in 1964 by African governments, with the support of UNESCO. It the first uniquely Pan-African training and research center in the continent for the improvement of public administration and governance systems in Africa. Its headquarters is located in Tangier, Morocco.

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D. CHALLENGES 112. Active inter-agency collaboration is increasingly a major feature of the UN system’s activities to advance human rights, democracy and good governance. Nonetheless, the system has not yet fully instituted a comprehensive system-wide approach that effectively links all these activities in a mutually reinforcing way and that maximizes its collective capacity to further this key dimension of the Millennium Declaration. The system also confronts the related challenge of effectively integrating its work in these areas with its activities in development and in conflict prevention, at the global and the country levels. 113. The integration of human rights activities into the UN system’s development and peace and security agenda continues to pose major challenges. Further progress in this direction will require not only intensified efforts at joint programming among the secretariats, but also more extensive and effective interactions among the system’s inter-governmental bodies. In the short term, the focus should be on: • mainstreaming human rights into the policies and programmes of UN organizations and promoting wider acceptance of the rights-based approach to development; • addressing in a more deliberate, forceful way respect for human rights in conflict situations; • establishing additional means of providing systematic assistance to states in their efforts to implement recommendations of UN human rights bodies at the national level; • tems;

broadening and intensifying support for national human rights protection sys-

• enhancing collective efforts to work with young people to utilize their potential for advocacy and support; • ment;

strengthening human rights training for institutions involved in law enforce-

• continuing advocacy to encourage ratification of human rights treaties and the removal of reservations to treaties already ratified; and • improving procedures for supervising implementation of State Party obligations, principally through monitoring by the relevant human rights treaty bodies. 114. In an environment of intense anti-terrorism measures, promoting the observance of human rights and ensuring that counter-terrorism measures comply with international human rights obligations raise new issues for the work of the High Commissioner for Human Rights and requires new attention by the UN system. 115. Inadequacies in resources continue to limit the capacity of UN organizations to meet growing support requirements in human rights areas and to hamper efforts to mainstream human rights into the development and peace and security agendas; they need to be addressed across the system.

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116. As in human rights, in the related area of support to democratic processes, the work of the UN system needs to be guided by a more comprehensive system-wide strategy, rooted in the Millennium Declaration, and to be mainstreamed more effectively in the system’s overall plans and activities in pursuit of the Declaration’s objectives. The universality, legitimacy and impartiality of the UN system gives it a distinct advantage in fostering inclusive democratic processes, which has yet to be fully exploited. 117. In the area of good governance, the UN system, in partnership with regional and civil society organizations, needs to integrate more purposefully its various activities in building capacities to advance the rule of law. To reinforce the rule of law, the United Nations has developed a ‘Strategy for an Era of Application of International Law: Action Plan’ that provides guidelines for Member States’ participation in compliance with the international treaty framework and aims to help States to prepare the necessary implementing legislation. Moving forward, the focus should be on: • integrating more systematically the rule of law and transitional justice into the strategic and operational planning of peace operations; • updating and expanding the UN guidelines, manuals and tools on rule of law topics; • elaborating new and enhanced tools and mechanisms for transitional justice and for justice sector development; • ensuring that all programmes and policies that support constitutional, judicial and legislative reform also promote gender equality; •

stepping up training on the rule of law and transitional justice; and

• developing further indicators of good governance, grounded in the provisions of the Millennium Declaration. 118. The Secretary-General, in his report to the 2005 World Summit, highlighted various ways to enhance UN efforts to secure for all peoples the ‘freedom to live in dignity,’ through promoting the rule of law, human rights and democracy. The future work of the UN system in these and related areas will be framed by the Summit’s outcome.

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CHAPTER FOUR

WORKING TOGETHER TO PREVENT AND MANAGE ARMED CONFLICTS 119. In the years since the adoption of the Millennium Declaration, the Executive Heads of the UN system in CEB have increasingly focused on the need for the system to reach a deeper understanding of the underlying causes of armed conflict and to make a more effective, sustained contribution to creating the conditions for lasting peace. 120. Many parts of the UN system are increasingly engaged in conflict prevention and peace-building activities. A survey in May 2002 evidenced a growing trend in UN organizations and agencies towards incorporating a conflict prevention perspective into their activities—whether geared to fostering economic development, social justice and respect for human rights or to promoting good governance and the rule of law.25 This chapter focuses in particular on the UN system’s work in managing transitions and protecting civilians in armed conflicts in the wider perspective of peace-building. It also addresses the system’s efforts to counter terrorism. A. ADVANCING A COMPREHENSIVE CULTURE OF PREVENTION 121. The UN system is increasingly approaching the construction of a comprehensive culture of prevention as part of the broader effort to build mutual confidence and reduce tensions. A key foundation of this effort is the important engagement of the system in different aspects of disarmament. This engagement ranges from verifying compliance with existing treaties on the proliferation of nuclear and other weapons— led by the IAEA, and involving organizations such as the Organization for the Prohibition of Chemical Weapons (OPCW) and the Comprehensive Test Ban Treaty Organization (CTBTO)—to providing timely assistance to Member States for the removal and disposal of small arms and landmines. 122. The UN system is at the same time keenly aware that building a truly comprehensive culture of prevention requires a constant, deliberate effort at integrating a prevention perspective, across all aspects of its work, not only in the political but also in the humanitarian and socio-economic areas, including its development programmes at the country level. Within the UN itself, considerable progress has been achieved in linking peace-building, humanitarian assistance and development work. The four UN Executive Committees—ECHA, ECPS, ECESA and UNDG—have been instrumental in acting on these linkages.26 In turn, this is serving to facilitate the timely engagement in this perspective, of specialized agencies and other development actors in processes related to post-conflict rehabilitation and reconstruction. 25

Interim Report of the Secretary-General on the Prevention of Armed Conflict (A/58/365S/2003/888). 26 Reviewing the United Nations: A Programme for Reform—Report of the Secretary-General (A/51/950).

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123. The UN system, at the same time, is introducing improved methodologies to deepen understanding of the impact of poverty and human rights on conflicts, and has begun to integrate more systematically the outcomes in development planning processes, within the framework of the UN Common Country Assessments (CCAs) and the UN Development Assistance Frameworks (UNDAFs). On this basis, the system is reinforcing policy guidance to Resident Coordinators and UN country teams on conflict prevention. As part of the effort to nurture a culture of prevention among the personnel of all UN organizations, the UN System Staff College (UNSSC) has operated, for the past few years, a system-wide training course, the Early Warning and Preventive Measures Project, which aims to improve UN system’s analytical capacities in the area of conflict prevention. Box 4.1. Coordination on early warning and prevention action The UN Interdepartmental Framework for Coordination on Early Warning and Preventive Action (‘Framework Team’) brings together the various parts of the UN system to devise strategies for consolidating peace, building on national and civil society efforts in the field. The Framework Team has been instrumental in initiating and coordinating early prevention action among a large number of UN bodies. It serves as a ‘gearbox’ between the field and Headquarters, channelling early warning information and suggestions on preventive and pre-emptive measures to the appropriate forums and decision making bodies. It utilizes existing tools, such as UN CCAs, UNDAFs and PRSPs, and builds on specific conflict prevention programmes that may be taking shape at the country level. A main concern of the UN Country Teams is to ensure that initiatives developed under the Framework Team have the necessary support of national governments and local authorities.

124. The UN system’s capacity-building work on human rights, democracy and good governance highlighted in the previous chapter is equally relevant to the system’s conflict prevention and peace-building effort. This is the case in many of the activities designed to: strengthen national capacities to protect human rights and to ensure that domestic institutions and processes respond effectively to civil, cultural, economic, political and social grievances and abuses that could lead to tensions and armed conflict; establish processes of consensus-building; facilitate transitional justice and reconciliation processes; strengthen the rule of law; promote accountability; ensure the delivery of essential services for the most vulnerable elements in society; and ensure the participation of women, youth and minorities in key national processes. From the same perspective, UN organizations are working to build support for diversity and tolerance in media, popular culture and education. Similarly, the system’s activities for the settlement and reintegration of conflict-affected peoples, including returned refugees, internally displaced persons and ex-combatants are increasingly being approached from a longer-term perspective, which seeks to advance peace-building and durable development. 125. The system’s support to Member States in combatting transnational crime should be seen in the same way—and as key to advancing most, if not all, of the Millennium Declaration’s objectives. Recognizing the need for comprehensive and coordinated action to help Member States fight organized crime, CEB in April 2004 adopted a strategy designed to help forge a system-wide response to the challenges posed by transnational crime. All of the immediate inter-agency measures identified

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by CEB in this area have been initiated, with the United Nations Office of Drugs and Programmes (UNODC) in the lead. The aim is to put in place a comprehensive and coordinated system-wide response to transnational organized crime capable of countering effectively its disruptive impact on economic and social progress and the effort to build peaceful, equitable societies. Box 4.2. Curbing transnational crime With UNODC as the focal point, four multi-agency task forces were established under the auspices of CEB to identify and elaborate links between ongoing conflicts and organized crime (UNODC, UNICEF, UNDPA, UNDP, DPKO, WFP, OCHA and UNRWA); collaborative interventions to counter trafficking in human beings and the smuggling of migrants, including responses to the vulnerability of trafficking victims to HIV/AIDS (IOM, UNHCHR, UNHCR, ILO, UNODC and UNICEF; the involvement of organized crime in trafficking in a variety of illicit commodities and the UN system's response (UNODC, UNEP. UNDDA, UPU, UNDPA, UNESCO, IMO, ICAD, IAEA, ICPO/Interpol, OPCW and CITES); and HIV/AIDS in prisons (UNODC, UNAIDS and WHO). Each of these task teams has produced a detailed report, from which a joint programme of activities to counter transnational crime has been developed. With the completion of the initial phase of raising awareness and building links among UN system organizations, the focus of the process has shifted towards joint programming. Eight specific areas for joint action by the UN system have been identified implementation of relevant international legal instruments; system-wide information collection, analysis and reporting; development of preventive approaches within the UN system; joint activities and projects; enhanced cooperation with identified external agencies; inclusion in UN country level interventions; promotion of best practices; and raising awareness of the UN system response.

B. MANAGING TRANSITIONS 126. Countries emerging from conflicts frequently face multiple challenges that require simultaneous action on many fronts in order to lay the foundation for sustainable recovery and long-term development. UN country teams have developed transitional recovery strategies to address the root causes of conflict and minimize the likelihood of its recurrence. The UN Assistance Mission in Afghanistan and the UN Mission of Support in East Timor provide good examples of efforts towards formalizing integrated, continuing support for good governance and for political and peacebuilding processes, while responding to urgent humanitarian and recovery needs. 127. In framing their response to countries emerging from conflict, organizations of the UN system are collaborating with governments and other partners to prepare comprehensive post-conflict needs assessments, in order to create a basis for longerterm reconstruction plans and to acquire a sound estimate of requirements for funding and other international support. 128. Contributions by UN organizations to the overall effort to manage the transition process range from assistance in restoring the institutional capacities of governments and communities for rebuilding and recovering from crisis, to help in creating jobs, reviving local enterprises, rehabilitating airports and civil aviation facilities, and restoring damaged communications networks.

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Box 4.3. Peace building and development in East Timor When violence erupted immediately after the vote for independence, in September 1999, more than two-thirds of East Timor's 800,000 people fled or were forcibly displaced from their homes. Nearly four-fifths of the infrastructure and public buildings were destroyed, along with much of agriculture. Organizations of the UN system complemented peacekeeping operations with emergency humanitarian assistance by providing food and medicines, rehabilitating basic infrastructure, protecting displaced persons and repatriating refugees who fled to West Timor. The UN assisted in the drafting of the constitution, which adheres to all international human rights principles. UN system assistance in this phase created a safe environment and provided the basic conditions for further rehabilitation, and development. Key UN system organizations supported a nation-wide process, involving as many as 38,000 ordinary citizens in formulating a vision for the country’s future and national ownership of a five-year development plan. Following Timor-Leste’s independence in May 2002, the UN’s executive and legislative powers transferred to the sovereign state. The new peacekeeping mission, UNMISET, continued to have responsibility for external security and law enforcement, as well as capacity building in governance, justice and development. Since May 2004, and pursuant to Security Council resolution 1543, the mission has primarily provided support for the public administration and justice system and for justice in the area of serious crimes. It supports the development of law enforcement and continues to provide support for security and stability. UNMISET’s Civilian Support Group embodies the philosophy of the ‘Brahimi Report’ which advocates a role for peacekeeping missions beyond providing troops and police support and which stresses the need for harmonization of assistance from the UN system.27 The organizations of the UN system are focusing on the country's social and economic development - from building the capacity of civil servants to strengthening the institutions of governance and from expanding education and health services to reducing poverty and developing communities. With the end of UNMISET on 20 May 2005, the UN system has laid the foundation to help ensure that peace is durable and that development is sustainable.

129. A joint UNDG-ECHA Working Group has emphasized the need for the system to operate from within a common strategic framework for the transition from conflict to peace, building on shared contextual analysis and needs assessments and responding to nationally defined requirements. Under the auspices of the ECHA, ECPS and UNDG, a standing mechanism has been established to provide support and guidance to the UN country team in planning the system’s support to the transition process. 130. UNDP, UNHCR, the World Bank and other UN entities of the system are piloting an integrated approach known as the 4Rs—Repatriation, Reintegration, Rehabilitation and Reconstruction—in order to bring humanitarian and development agencies and partners together in an effort to reinforce peace processes and avert the reemergence of violence in transition situations. The approach aims to promote mutually reinforcing interventions by different UN agencies, on the basis of common principles, integrated planning and local ownership.

27

Report of the Panel on United Nations Peace Operations (A/55/305–S/2000/809).

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131. Accordingly, the UN system is now applying comprehensive transition recovery frameworks that integrate reconstruction, rehabilitation and long-term development to provide support to countries emerging from conflicts. In Liberia, a comprehensive assessment of the country’s transitional requirements has led to a resultsfocused transitional framework that currently serves as the basis for coordinated support by the UN system. In Sierra Leone, the peace-building and recovery strategy integrates humanitarian and development assistance in one process. A large number of UN system organizations are supporting, on similar bases, transition processes in Afghanistan, Bosnia and Herzegovina, Haiti, Burundi, Chad, the Democratic Republic of Congo, Eritrea, Guinea-Bissau, Liberia, Mozambique, Sudan and Timor-Leste. Box 4.4. Working together on transition in Liberia After 14 years of devastating civil war in Liberia, a peace agreement was signed in August 2003. A national transitional government was established and urgent reconstruction needs were identified by organizations of the UN system, together with the World Bank and other partners. In the transition period, UN organizations have been working together within the Results-Focused Transition Framework adopted by the transitional government. UNDP is funding five reintegration projects and is implementing capacity-building initiatives and activities to increase access to care, support and treatment for people living with HIV/AIDS, tuberculosis and malaria. It is also supporting the work of the Independent National Commission on Human Rights to develop a national action plan on human rights. UNICEF is helping protect and support vulnerable communities and groups, including women and children. UNFPA has provided support to protect women and helped to raise awareness of sexual and gender-based violence. Its ‘back to school’ campaign delivered emergency school-supply kits for 800,000 children and trained 12,000 primary school teachers. It also helped to install 432 water points and basic sanitation facilities in 519 schools. WFP’s school feeding programmes have reached 395,510 children in 1.065 schools. WFP is also working closely with UNICEF and WHO to increase the capacity of the transitional government to integrate food assistance with health care. FAD and WFP have been collaborating to revive the agriculture sector. The national immunization programme is continuing with the participation of UNICEF, WHO and other partners. It has already reached 95 percent of its target figure, having immunized 1,5 million children against measles. WHO is working with the Ministry of Health and Social Welfare to improve the quality of drinking water by introducing the local production of chlorine. UNEP and UNDP are working with the Government and non-governmental organizations to help restore proper administration of natural resources. And, in close collaboration with the government, UNHCR is facilitating the voluntary repatriation of some 30,000 Liberian refugees from neighbouring .countries, in addition to the estimated 50,000 who have already returned home. UNHGR is working closely with UNMIL, IOM, partner-agencies and the Government to return internally displaced persons to their places of origin.

132. The UN is increasingly deploying integrated missions to address comprehensively and from a preventive perspective the interlinked dimensions of peace and security, humanitarian assistance and development. In appropriate situations, a single official has been designated as both Deputy Special Representative of the SecretaryGeneral and Resident Coordinator, supported by an integrated task force at UN Headquarters. This allows the development community to work more closely with peacekeepers in a mutually supportive fashion and enables peacekeepers and development

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staff to address transition issues and concerns related to the reconstruction of crisis countries in a more coherent way. This integrated approach is currently being applied in Angola, Burundi, Côte d’Ivoire, Liberia and Sierra Leone. While operating within this integrated framework, the UN is taking care to retain its capacity to ensure the independence of humanitarian action, cooperating closely with non-governmental organizations and the Red Cross. 133. At the inter-governmental level, the ECOSOC Ad Hoc Advisory Group on African Countries Emerging from Conflict has advanced the UN’s capacity to address more coherently the socio-economic and political aspects of post-conflict recovery. It has also contributed to a further strengthening of collaboration between the UN and the Bretton Woods institutions in post-conflict situations. C. PROTECTING THE VULNERABLE: SPECIAL EMPHASIS ON CIVILIANS IN ARMED CONFLICT 134. In recent years, civilian populations have increasingly become the targets of armed groups. Women, who often suffer in disproportionate numbers, are being subjected to atrocities that include organized sexual violence and exploitation. Children are being targeted—and at times recruited or abducted into militia forces. Women and children also constitute the majority of the world’s refugees and internally displaced persons. In the circumstances, the protection of civilians, especially women and children in conflict situations, remains a key humanitarian imperative for the international community and the UN system. 135. The work of UN system organizations to address the protection of civilians in situations of armed conflict or transition is guided by international norms derived from humanitarian, human rights, refugee and criminal law. On that basis, the system has endeavoured to establish common policy orientations that can maximize the coherence and impact of its work for the protection of civilians. As a result, the protection of civilians is now more systematically integrated into the mandates of various peacekeeping operations in Africa. As part of the same effort, common approaches are being developed to use multidisciplinary and joint assessment missions for evaluating the implementation of humanitarian mandates within peacekeeping environments. 136. A system-wide effort is underway to raise greater awareness of the role and responsibilities of Member States in protecting civilians in armed conflict, including in monitoring, reporting and taking action against violations. In general, the UN is pursuing the protection of civilians in armed conflict through a broad platform for action which covers: (a) improving humanitarian access to civilians in need; (b) improving the safety and security of humanitarian personnel; (c) improving measures to respond to the security needs of refugees and internally displaced persons; (d) ensuring that the special protection and assistance requirements of children in armed conflict are fully addressed; (e) ensuring that the special protection and assistance requirements of women in armed conflict are fully addressed; (f ) addressing shortcomings in the approach to disarmament, demobilization, reintegration and rehabilitation; (g) addressing the impact of small arms and light weapons on civilians; (h) combatting impunity; (i) developing further measures to promote the responsibility of armed groups and nonState actors; and (j) ensuring the provision of the necessary resources to address the

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needs of vulnerable populations in ‘forgotten emergencies.’ The scope of assistance to countries that receive and provide support to refugees is also being expanded, including assistance to address any environmental impact of hosting large numbers of refugees. 137. Guidelines to provide common orientations to the work of UN system country teams have recently been drawn up in a number of areas. These include a Guidance Note on Durable Solutions for Displaced Persons for use by UN Country Teams, prepared by an inter-agency working group led by UNDP and UNHCR. The Note focuses on approaches to the elaboration of development programmes for displaced persons and their host communities, within the framework of the MDGs. 138. A task force of the Inter-Agency Standing Committee on HIV Interventions in Emergency Settings has similarly developed guidelines to improve the protection and care of people suffering from HIV and AIDS in situations of conflict and/or displacement. UNHCR and several other UN system organizations have drawn upon this interagency work to develop and implement various forms of interventions appropriate to the circumstances of people suffering from HIV and AIDS. 139. The Office of the Special Representative of the Secretary-General for Children and Armed Conflict has focused on strengthening and expanding the scope of international instruments for child protection. Together with ILO, UNODC, UNHCR, UNDP, UNIFEM, International Organization for Migration and other partners, UNICEF is working to prevent child trafficking, particularly in conflict situations, by advocating adherence to such legal instruments as the Palermo Protocol to the UN Convention against Transnational Organized Crime, the Convention on the Rights of the Child and its Optional Protocols, and the ILO Convention 182 on the Worst Forms of Child Labour. 140. Along with poverty, the AIDS pandemic and other social factors, armed conflicts have contributed to a growing number of children being orphaned or otherwise separated from their families, making them particularly vulnerable. Various organizations of the UN system are helping to enhance their protection by strengthening health care systems, providing affordable supplies and drugs and encouraging local communities and social welfare systems to ensure that caregivers receive the support they need and that access of these children to education improves. 141. Effective responses to sexual and gender-based violence are being incorporated in all aspects of peace-keeping operations, including improved physical protection, monitoring and reporting. Personnel-contributing countries are being urged to ensure that all mission personnel have training, prior to deployment, on the rights and specific protection needs of women and children. Increased donor support is being mobilized for programmes focused on the rights of women and girls, particularly those related to sexual violence and to HIV/AIDS and other sexually transmitted diseases. 142. The United Nations has launched a renewed, vigorous effort to prevent, investigate and address allegations of sexual misconduct by its personnel and peacekeepers. No-fraternization rules and imposition of curfew for military contingents have been tightened and are being strictly enforced. ‘A comprehensive strategy to eliminate future sexual exploitation and abuse in United Nations peacekeeping operations,’ which contains a number of concrete recommendations to deepen the reform processes underway in this respect, has recently been finalized for consideration by the General

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Assembly (A/59/710); and it has been reviewed, in the first instance, in the Special Committee on Peacekeeping Operations. The recommendations cover: the standardization of rules against sexual exploitation and abuse for all categories of peacekeeping personnel; the provision of a professional investigative capacity for peacekeeping operations; organizational, managerial and command measures to address sexual exploitation and abuse directly; and strengthening of individual accountability through the disciplinary process, as well as financial and criminal accountability, where appropriate. D. COUNTERING TERRORISM 143. An effective approach by the UN system to conflict prevention, peacebuilding and protecting the vulnerable must fully encompass and, indeed, have a sharp, strong focus on countering terrorism. The system’s work in this area is guided by a large number of international conventions negotiated within the United Nations. It covers a wide spectrum of interventions aimed at: • Assessing the longer-term implications and broad policy dimensions of terrorism for the United Nations; • ures;

Advising Member States on legislating and implementing antiterrorism meas-

• Auditing States’ aviation security systems to ensure compliance with international standards and to spur the development of new safeguards, including the development of standards and biometrics for international travel documents; • Fighting piracy in the context of international agreements to prevent and suppress terrorist acts against ships at sea and in port, and improving overall ship and port security; • Reviewing nuclear facilities in Member States, to identify necessary security upgrades and the financial requirements to carry them out; • Strengthening Member States’ abilities to detect radioactive material at their borders and to respond to illicit trafficking; • Combatting the financing of terrorism through the monitoring of postal services; and • Raising awareness and preparedness at the national and international levels to deal with the accidental release or deliberate use of biological and chemical agents or radio-nuclear materials. 144. The work of the organizations of the UN system complements that of the Security Council and its Counter-Terrorism Committee (CTC), which monitors compliance with the provisions of Security Council resolution 1373 (2001). CTC also considers ways in which States can be assisted and explore the promotion of best practices; the availability of existing technical, financial, in particular to regulatory and

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legislative programmes; and synergies among assistance programmes within international, regional and sub-regional organizations. 145. In addition, the UN has established a Policy Working Group which meets periodically to identify the longer-term implications and broad policy dimensions of terrorism and to formulate recommendations on steps to address it. E. CHALLENGES 146. UN organizations have made considerable strides in adopting multidimensional, country-based approaches to conflict prevention and post-conflict reconstruction. Yet, the challenges posed remain daunting and require intensified efforts by the UN system, as well as greater support from Member States. These challenges include: • a reinforcement of the UN system’s capacity to act as a ‘mobilizer,’ helping to coordinate the efforts of all actors in developing and implementing comprehensive prevention and peace-building strategies; •

a more strategic response to the economic dimensions of conflict;

• greater attention to environmental threats and building additional capacity to analyse and address those threats; • enhancing the UN system’s ability to understand better the local context of armed conflict; • greater attention and a sharper focus on the immediate post-conflict period, when many of the conditions are set for either sustained recovery or the recurrence of conflict and possibly civil war; and • a stronger focus by the UN system on helping countries to develop their own institutions and processes for conflict prevention and peace-building. 147. For the UN system to build these capacities and effectively engage partners in proactively preventing and managing armed conflicts, it needs to: • develop, based on a deeper appreciation of the different priorities that countries and peoples have, a better understanding of the nature of the threats to peace, the factors that contribute to violence and the interlinkages among them; • further enhance inter-agency cooperation at both the analytical and operational levels; and • identify innovative, mutually reinforcing responses to emerging threats to peace and help build stronger coalitions for action, engaging Member States, multilateral agencies and civil society. 148. A major system-wide effort will continue to be required to keep the issue of the protection of civilians in situations of conflict and displacement as a high priority for Member States and the international community. And the UN system will need to step up further its advocacy for the ratification and observance of treaties and conventions relating to the protection of civilians, including the Genocide Convention, the

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Geneva Conventions, the Rome Statute of the International Criminal Court and all refugee conventions. 149. Devising a comprehensive approach to countering terrorism poses a major, growing challenge for the UN system. In his report to the 2005 World Summit, the Secretary-General suggests the elements of such a strategy, as well as an array of proposals to strengthen the UN framework for and contribution to collective security. The UN system’s future work in peace and security will be guided by the consensus reached at the Summit, by the directives of the governing bodies of its constituent members and by the ongoing evolution of the international legal framework. 150. The effort to build a fully integrated system response capacity for peacebuilding, armed conflict prevention and humanitarian interventions will ultimately succeed only if supported by adequate resources. Existing modalities for financing critical operations during the period of transition from humanitarian assistance to peacekeeping and peace-building support and to long-term development programming require urgent review.

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CHAPTER FIVE

THE WAY FORWARD FOR THE UN SYSTEM 151. The Charter of the United Nations and the constituent instruments of the specialized agencies and other UN organizations stem from a basic quest for multilateral cooperation and from fundamental principles of international solidarity that have stood the test of time. The Millennium Declaration reinforces these principles and provides the basis for a renewed unity of purpose and a new common platform for action across the UN system. While the functions and activities of individual UN system organizations relate in varying degrees to the Millennium Declaration, each organization is committed to doing its part to make the system as a whole a more cohesive and effective agent in upholding the Declaration’s values and in advancing its objectives. 152. This report shows how the Millennium Declaration already is transforming the way the UN system works. Under the aegis of the Chief Executives Board (CEB), the UN system has made substantial progress in reinforcing commonalities to be better equipped to help the international community address global challenges and in fostering a culture of excellence and integrity. Nonetheless, much more needs to be done for the UN system to evolve into ‘One United Nations’—the cohesive force for progress and change that current conditions require and that Member States have demanded in putting forward the Millennium Declaration. 153. What would characterize ‘One United Nations’? Although not the only multilateral player, ‘One United Nations’ could serve as a unique agent and catalyst of progress, applying its varied strengths to a common purpose. It would both support and build on regional and bilateral cooperation. It would engage in concerted effort with all actors—State and non-State—to advance synergies. Its constituent organizations would together have the ability to attract sustained political support, to formulate coherent policies and to translate those policies into coherent programmes and operations that yield concrete results. It would derive direction from a common set of goals and hold itself accountable for better results. The overall result of ‘One United Nations’, so defined, would be an international environment more conducive to progress and real change in the conditions and quality of life of peoples throughout the world. 154. Achieving ‘One United Nations’ will require of the UN system specific changes in policy and in practice. The requisite changes are, in fact, similar to those that citizens increasingly demand of their governments—and can be organized into three categories: •

deepening understanding and better managing knowledge;

• achieving an inclusive, purposeful mobilization of all resources and capacities; and •

increasing transparency and accountability.

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A. DEEPENING UNDERSTANDING AND BETTER MANAGING KNOWLEDGE 155. A collective capacity to acquire and create knowledge and put it to productive use for the common good is as critical to the efforts of the UN system as it is to individual countries. This means, for the UN system, concerted action to deepen understanding and to manage and share knowledge much more purposefully. On the conceptual level, for example, while peace and development obviously have many interconnections, the exact linkages between them are far from being fully analyzed and understood. In the development area itself, UN system organizations need to reflect further together on how to advance and project to policy makers a holistic approach to economic and social development. That approach would emphasize the mutually reinforcing relationship between the pursuit of the Millennium Development Goals and the pursuit of the wider UN development agenda that has emerged from the global conferences. It would ensure that social objectives are effectively integrated into economic decision-making. And it would factor in the challenge of addressing the inequalities that exist within and among countries, both as an ethical imperative and as a practical necessity to remove a major impediment to growth and sustainable development. 156. In our knowledge-intensive world, the efforts of individual organizations to become centres of excellence in their respective areas of competence will have to coalesce into system-wide action to become—and earn recognition as—a centre of excellence across those areas, particularly on multisectoral approaches that can best advance both security and development. Box 5.1. Working together on the information society CEB member organizations collaborated closely in the ITU-led preparatory and follow-up processes for the first phase of the World Summit on the Information Society (WSIS) held in Geneva on 10-12 December 2003. Their contributions were coordinated through the High-Level Summit Organizing Committee (HLSOC) led by ITU. At the second phase of the Summit in Tunis, the HLSOC is expected to monitor implementation of the Geneva Action Plan by organizations of the UN system and report on those efforts to the Summit process. The HLSOC is engaged in a stock-taking exercise to assess the current level of programmatic activity by CEB member organizations that touch on the Information Society and to provide information on new activities targeted to meet the goals set by WSIS. Supporting the Information Society requires a coherent and coordinated approach by UN system organizations. While some issues directly interest nearly all organizations of the system (such as access to ICT), others are more specific to individual institutions (such as emedicine, online dissemination of weather information, technical standards and intellectual property). Many UN system organizations already have linked programmes and actions for bridging the digital divide. In many cases, these involve programmes to use and develop e-applications that fall within their mandates. The Geneva Plan of Action provides a framework for re-orienting and reinforcing those programmes, strengthening synergies and sharing best practices.

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157. In the follow-up to the global conferences and the Millennium Declaration, the UN system has intensified its efforts to more effectively manage and share knowledge, to use information technology and to produce reliable standardized data, all of which enable coherent support of decision-making and cogent system-wide strategies for public communication. The system agenda for further progress should focus on: • Common, more reliable and more accessible, user-friendly statistical and other data. This should be accompanied by a joint effort to significantly strengthen support for capacity-building in countries in both data gathering and analysis. • A common strategy for better employing information and communications technologies (ICT) in both management and operations. •

Identifying and sharing best practices within the system and outside it.

Box 5.2. Knowledge sharing and information technology in support of the MDGs Work is underway within the framework of CEB to forge new directions and establish new channels for exchanging ideas and knowledge within the UN system. Underpinning these efforts is a UN System Information and Communication Technology Strategic Framework developed by the ICT Network of cm Building on past evaluations of ICT opportunities in the system, this Strategic Framework represents a collaborative initiative geared towards the improvement of communication channels and the development of common ICT infrastructure elements across organizations of the UN system. The Strategic Framework sets out the charter for UN system organizations to pursue ICT investments in a way that could result in savings and improved efficiency in technology operations upon which any knowledge sharing initiative rests. Two key initiatives under the ICT Strategic Framework involve creating a more connected UN, with an expanded UN system network, and a more informed UN, with an initiative for knowledge sharing. The UN System Development Network envisions an unparalleled ability to communicate amongst all the organizations of the UN family. Currently, most organizations of the system maintain and operate independent global networks that allow them to communicate with their own staff but hinder full cross-institutional collaboration. Work currently underway seeks to eliminate this redundancy, resulting in lower overall operating costs and enhancing the ability of all organizations to communicate throughout the system. Sharing information across organizations is another major initiative under the Strategic Framework. Knowledge management initiatives are ongoing in many parts of the UN system, but widespread sharing of knowledge outside individual organizations has yet to be realized. Building on lessons learned by the World Bank, this ICT Network initiative seeks to identify the most appropriate tools and techniques to facilitate. the widespread dissemination of knowledge existing in individual organizations across the UN system.

• Promoting a system-wide learning culture rooted in shared values and common objectives for all staff of the UN system.28 The culture building effort must focus on staff as they enter the international civil service, joining not only one organization but also an integrated system of organizations. It should focus on staff as they assume 28 The UN system Staff College, established in 2002, pursuant to GA resolution 55/207 is a systemwide instrument that focuses on building a common culture across all areas of the work of the system.

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management responsibilities and hence a greater role in steering the UN organizations towards One United Nations. And it should engage senior management, charged with providing leadership, momentum and policy guidance for these efforts. B. ACHIEVING AN INCLUSIVE, PURPOSEFUL MOBILIZATION OF ALL RESOURCES AND CAPACITIES 158. As at the national level, achieving an inclusive, purposeful mobilization of all resources and capacities should continue to drive change within the UN system. Fragmentation and the pursuit of narrow interests have typically—and in some cases justifiably—featured in descriptions of the UN system. In its response, however, to the Millennium Declaration and to the UN conferences and summits on economic and social issues since the 1990s, the UN system has proven its potential: to overcome the obstacles to policy coherence and cohesive action that are inherent in its structures; to integrate sectoral interventions effectively; and to mount more multidisciplinary and well sequenced responses. Further action on this front must take several forms, including: • A deliberate effort, in the pattern of the global conferences, to engage the active participation of all parts of the UN system in shaping policies. Participatory processes not only improve the quality and legitimacy of a given policy, but they also help to forge constituencies committed to the policy’s implementation. Among the UN organizations, they help to generate the very sense and substance of ‘One United Nations’. Box 5.3. Report of the Panel of Eminent Persons on UN-Civil Society Relations Given the rapidly changing international environment-particularly the spread of social movements accompanying the information revolution-the Panel of Eminent Persons on UN-Civil Society Relations called for the United Nations to become more attuned and responsive to citizens' concerns and enlist greater public support. The report of the Panel, entitled ‘We the Peoples: Civil Society, the United Nations and Global Governance’ (A/58/B17 and Corr.1, June 2004), outlined a set of proposals for enhancing civil society engagement covering four main areas: ensuring the United Nations became an outward looking organization; connecting ‘the local with the global’; helping strengthen democracy in the twenty-first century; and embracing a plurality of constituencies. The report advocated a paradigm shift in how the UN works, calling on the Organization to foster multi-constituency processes that incorporate into its work the perspectives and capacities of citizen groups, policy advocates, businesses, local governments and parliamentarians. Noting that the proposals of the Panel aim to strengthen the United Nations, enrich intergovernmental debate and improve the services it provides to the world’s people, the Secretary-General endorsed the report and called for greater involvement by civil society in the work of the Organization. The Secretary-General suggested that the contribution of non-governmental organizations (NGOs) in intergovernmental bodies be built into the General Assembly’s regular business and called for improving the UN Secretariat’s dialogue with NGOs, including by giving them easier access to information and documentation.

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Box 5.4. The Triennial Comprehensive Policy Review of Operational Activities for Development The UN system can only succeed in its mission to help countries implement the goals of the Millennium Declaration if its delivery of services at the country level is well managed, using all its resources and expertise. Recognizing the need to build on progress underway to ensure a coherent, effective response to country needs, the CEB held a one-day retreat in October 2004, to consider further steps needed to maximize the collective impact and involvement of the UN system as a whole. The Board identified the need for the UN system to move towards a qualitative shift in its culture to emphasize the primacy of government programmes to which different organizations were called upon to contribute. The Resident Coordinator system had to be so constituted as to fully exploit the contribution of each part of the system, whether or not present on the ground. Certain measures were called for, such as one common UN strategy that would be closely linked to the country's own priorities and to a more inclusive PRSP. In its resolution 59/250, on the Triennial Comprehensive Policy Review of Operational Activities for Development, the General Assembly set out a road map for organizations of the system, both collectively and individually, to enhance the UN system’s development cooperation activities. As this report goes to print, efforts are underway to ensure this is taking place through, among other things, the joint efforts of HLCP and UNDG to bring into closer alignment the policy and operational dimensions of the system’s work.

• A constant effort to engage parliaments and local authorities and all forces of civil society in policy development and implementation. While the implications will vary from organization to organization, the individual and collective actions taken in this area will have to stem from a system-wide commitment, evident to the system’s partners. The effort must be pursued coherently at the global, regional and country levels. And it must encompass not only the work methods of the secretariats, but also those of the intergovernmental bodies. • A renewed effort, within and across organizations, to ensure that the system’s conceptual and standard-setting work and its country-level operational activities proceed in a mutually reinforcing manner. The capacity to combine analytical and normative functions with operational mandates amounts to a unique comparative advantage of the UN system, which so far has been vastly underexploited. A more integrated approach to the system’s conceptual and operational functions would also help further harmonize the system’s mission to advance agreed goals at all levels and the system’s commitment to the basic principle of country ownership of development assistance. • A concerted effort to achieve a much more unified system presence at the country level. Such a unified presence would be centred on the resident coordinator mechanism and draw on all the capabilities available in the system, including especially the organizations and entities represented at the country level. Its guiding objective would be to promote and sustain capacity development and to support governments in exercising effective leadership over the development assistance they receive. It would enable the system to sequence individual actions to optimize collective performance, in a way that best serves country needs. In order to rally all the talent and

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resources available to advance coherently agreed development goals and the country’s development priorities, the unified system presence would also engage the various constituencies—in government and civil society—to which the different UN organizations relate at the country level. C. INCREASING TRANSPARENCY AND ACCOUNTABILITY 159. As it promotes transparency and accountability as principles of good governance at the national and local levels, so must the UN system internalize and apply these principles as the core of what ‘One United Nations’ should embody and project at the global level. Genuine transparency and accountability—for both actions and results—must characterize the conduct of UN organizations and international civil servants. The system and the world’s people which it aims to serve should expect nothing less than the highest standards of conduct from the UN system’s staff. Those standards should translate into concrete measures within individual organizations, responsible for their further development and enforcement. They should also reinforce the system-wide position of zero tolerance for abuses, of openness to scrutiny, and of proactively implementing the most effective and reliable systems for monitoring, evaluation, audit and oversight. ‘One United Nations’ should act now to shape and reinforce common accountability instruments. Initiatives to strengthen monitoring and evaluation should converge into common, system-wide action to evaluate UN performance in terms not merely of effort, but mainly of real impact. 160. The 2005 World Summit could do much to sustain and advance the evolution of ‘One United Nations’. Governments at the Summit should reaffirm their consensus that these are indeed the directions in which they wish the UN system to continue to move and then act deliberately to advance that movement in the different governing bodies of the system. 161. To be an effective foundation for continued progress and change, the consensus produced by the Summit cannot be selective. It will have to entail a strong, renewed commitment to substantive progress in relation to each of the Declaration’s three pillars and the construction of strong bridges among them. The bridge between security and development will be key: the new consensus will have to respond to grave, growing concerns regarding arms proliferation and terrorism, while simultaneously giving real hope to those who live with poverty, illiteracy, contagious diseases and environmental degradation as daily causes of insecurity. Building a firm commitment to human rights and the rule of law will also be crucial in determining the strength of the bridges extended from this pillar to both the development and peace pillars—and hence to the strength and effectiveness of the entire multilateral foundation and framework for collective action.

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ANNEX

COLLABORATIVE INITIATIVES AND ACTIONS BY THE ORGANIZATIONS OF THE UNITED NATIONS SYSTEM TO SUPPORT THE IMPLEMENTATION OF THE MILLENNIUM DECLARATION29 Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 1. Eradicate extreme poverty and hunger Multi-donor Support capacity Jointly (i) Strengthen the preparation and trust fund building in low income managed implementation of national Povcountries with poverty in-country by erty Reduction Strategy Papers reduction strategies. the World (PRSPs); (ii) Focuses on activities Bank and the that are critical to the successful UN development and implementation of the poverty reduction strategies, building sustainable country capacity and supporting domestic stakeholders and international partners. United Global partnership to FAO, IFAD, (i) Supporting efforts by governNations achieve the shared WFP, UN, ments and their System goals of ‘food for all’ ILO, partners to implement the World Network on and rural poverty UNESCO, Food Summit Rural reduction. WHO, Plan of Action and rural Development UNDP, development and food and Food UNICEF, security programmes; (ii) ReinSecurity UNFPA, forcing ties between UN System UNIDO, organizations and other stakeUNEP, holders, notably NGOs and civil UNDCP, UN- society organizations; (iii) FosterHabitat, ing synergies among Network World Bank, members; (iv) Exchanging and IAEA, IMF, disseminating information, exWMO, periences and best practices UNHCR and among network members with UNAIDS country-level theme groups.

29 The examples presented in the following table are illustrative of the range of collaborative work undertaken by United Nations system organizations in areas covered by the Millennium Declaration.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 1. Eradicate extreme poverty and hunger Inter-Agency (i) Reduce global food FAO (Lead (i) Development of best practices Working insecurity and vulneragency), in food security information sysGroup on ability, and address IFAD, ILO, tems at country level and across a Food their multiple causes UNOCHA, variety of socio-economic Insecurity closely linked to povUNDESA, circumstances; (ii) Greater coand erty; (ii) Improve data UNDP, ordination among donor and techVulnerability quality and analysis UNEP, nical agency efforts in food secuInformation through the developUNICEF, rity information systems; (iii) and Mapping ment of new tools and UNFPA, Linking information systems to System capacity-building in UNU, World remedial action programmes and (FIVIMS) developing countries. Bank, WFP, evaluating their impact. WHO and WMO International Reduce hunger and World Bank, Assessment activities focus on: (i) Assessment poverty, improve rural FAO, UNEP, The challenges that can be adof livelihoods and WHO and dressed through agricultural Agricultural achieve equitable, UNDP knowledge, science and technolScience and environmentally, soogy (KST); (ii) The likely posiTechnology cially and economitive and negative consequences of for cally sustainable deagricultural KST; (iii) The enaDevelopment velopment through the bling conditions required to opti(IAASTD) generation, access to, mize the uptake and diffusion of and use of agricultural agricultural KST; (iv) Investknowledge as well as ments to help realize the potential science and of agricultural KST. technology. Diagnostic Create an environment UNCTAD, DTIS prepared for three pilot Trade conducive to ITC, IMF, countries—Cambodia, MadagasIntegration development and World Bank, car and Mauritania. Studies poverty eradication in WTO and (DTIS) the area of trade and UNDP development. Informal (i) Increase public FAO, UNDP, The IIWG provide a multiInternational awareness, at all UNEP, stakeholder mechanism of the Working levels, on the contribu- UNESCO, UN, donors, countries, ConsultaGroup tions of rice-based UNICEF, tive Group on International (IIWG) to systems for food secu- IFAD and Agricultural Research (CGIAR) coordinate rity, better nutrition, WHO center, NGO and private sector. It the poverty alleviation and is facilitating the pooling of Implementalivelihood improveexperience and funding support of tion of ment; (ii) Promote and both developed and developing International help guide the efficient countries and sharing of lessons Year of and sustainable devellearned. opment of rice and Rice—2004 rice-based production and beyond systems now and in the future.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 1. Eradicate extreme poverty and hunger Initiative to stem Reverse the burden FAO, WFP, (i) A strategic plan developed by the impact of of HIV/AIDS on IFAD and FAO in collaboration with WFP, HIV/AIDS on hunger and the UNAIDS IFAD and the UNAIDS Secrehunger decline in food tariat to address HIV/AIDS and production. hunger; (ii) In southern Africa, UN partners collaborate closely, and work with a variety of international NGOs, on collaborative activities. Regional NetStrengthen the FAO, IFAD Workshops, bank and microfiworks for Rural capacity of and nance training, materials develFinance financial service UNCTAD opment and policy dialogue and (Regional Agriproviders and development. cultural Credit policy makers. Associations) and Marketing (Technical Cooperation Among Developing Countries Networks) 2. Achieve universal primary education Education for All (i) Ensure the inte- World Bank, EFA partnerships involve col(EFA) gration of internaUNESCO, laborative efforts such as the UN partnerships tional initiatives UNICEF, Girls’ Education Initiative, led into national action WFP and and coordinated by UNICEF; the plans and proUNFPA Fast-Track Initiative, led by the grammes and imWorld Bank; HIV/AIDS and prove the linkages Education, in which UNESCO’s between them; (ii) International Institute for EducaSupport countries tional Planning is a key actor; and most at risk of the United Nations Literacy Decfailing to achieve ade (2003-2012), for which the education UNESCO is the lead agency. MDG. These initiatives are channelling donor support to countries with financing gaps, providing technical support for education sector plans and ensuring that gender issues are fully incorporated in the planning and financing of national efforts to achieve universal primary education. The UN agencies and other partners target their support and coordinate their responses to EFA at the country level.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 2. Achieve universal primary education UN Girls’ (i) Expand girls UNICEF, (i) A minimum package of health Education education through ILO, World and nutrition interventions develInitiative health and nutriBank, oped by WFP and UNICEF to (UNGEI) tion measures. (ii) UNAIDS, promote girls’ education with a Focus especially UNDESA, special focus on Africa. The on the six most UNESCO, package includes provision of cost-effective, UNFPA, clean water and sanitary latrines, scalable intervenUNHCR, health, nutrition, hygiene educations (food for UNIFEM, tion and micronutrient suppleeducation, deWFP, UNDP ment; (ii) A simple, global apworming, separate and WHO proach for UNGEI developed by sanitary faciliWFP to raise funds for and imties/latrines, safety plement 6 key interventions to and security meassupport girls’ education in tarures, support for geted countries under lead agency female teachers arrangement. and cash for school supplies and fees); (iii) Raise funds globally for these specific activities, allocating the funds for each intervention to the agency/ group that will be most effective in carrying out the intervention in that country. Inter-Agency Promote a strategic UNESCO, (i) A framework on the role of Task Team on approach to adUNAIDS education in the protection, care Education and dressing Secretariat, and support of orphans and vulHIV/AIDS HIV/AIDS and UNDCP, nerable children living in a world Education at WHO, with HIV and AIDS developed; global, regional, UNICEF, (ii) The Global EFA and Global and country levels. UNDP, Initiative for HIV/AIDS PrevenUNFPA and tion Education (GIPE) supported World Bank by UN partners. Inter-Agency Coordinate and World Bank, INEE undertakes various activiNetwork for strengthen interUNESCO, ties to ensure provision of educaEducation in agency responses UNICEF and tional services during emergency Emergencies during emergenUNHCR periods. (INEE) cies in the area of education.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 3. Promote gender equality and empower women Gender Theme Serve as a key 86 Gender (i) Pool resources for joint events Groups instrument for Theme Groups and provide gender training; (ii) dialogue and in 78 UNDP Facilitate dialogue on gender isdevelopment of programme sues and participate in the develcommon and country offices opment of common strategies and coherent strategies involving action plans; (iii) Advocacy and and action plans UNDG member awareness raising; (iv) Support for gender mainorganizations governments in legislative action, streaming at technical support in capacitycountry level. building and community-level interventions; (v) Workshops to sensitize policymakers and government officials, as well as United Nations staff. Regional Promote women’s UNECA, Mainstreaming gender into the interagency empowerment and UNECE, respective work programmes of mechanisms on gender equality UNECLAC, the Regional Commissions and the through a UNESCAP, undertaking joint activities for advancement coordinated UNESCWA achieving gender-related MDGs. of women response by the and relevant UN system at the UN system regional level. organizations in the respective regions Inter-Agency Promote common UNICEF, Developing Gender and Task Team understanding of UNDP, ILO, HIV/AIDS Resource Packages to (IATT) on the gender World Bank, guide programming and advocacy HIV/AIDS and perspective on OHCHR, consisting of: (i) 17 fact sheets on Gender HIV/AIDS among UNESCO, key topics in HIV/AIDS and genIATT member UNFPA, WFP der; (ii) An operational guide to agencies and and UNIFEM. improve capacity at the regional reinforce efforts to and country level to mainstream address the gender gender into HIV/AIDS programdimensions of the ming through a set of checklists HIV/AIDS and tools; (iii) A review paper pandemic. that considers the issues and challenges of integrating gender into programmatic and policy action. Interagency Integrate gender UNFPA, (i) Developing a matrix for preTask Force on considerations into UNIFEM, vention, protection and coherent Gender and humanitarian UNHCR, inter-agency response to GBV; Humanitarian response planning UNICEF and (ii) Reviewing gender dimensions Assistance and operations. WHO of the CAP process; (iii) Developing guidelines for gender programming in humanitarian settings.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 3. Promote gender equality and empower women Women’s Review the impact WHO, UNFPA, (i) Establishing an evidence base health in crisis of political, social UNICEF and on challenges to women’s situations and economic UNHCR health—particularly sexual and crisis on women’s reproductive health in conflict health and develop settings, with a focus on the a conceptual health consequences of violent framework for acts against women, through programme multi-stakeholder, rapid analysis improvements. (with key-informant interviews); (ii) Building the capacity of health services to better respond to women’s health needs in conflict settings with particular attention to the consequences of violent acts, risks of sexual and reproductive ill health and HIV; (iii) Improving the support available to those providing women's health care in crisis settings; (iv) Disseminating experiences beyond the high-emphasis settings; (v) Monitoring health services used by women in conflict settings. 4. Reduce child mortality Child Survival (i) Provide a forum UNICEF, (i) National strategy documents Partnerships for coordinated WHO, World for child survival; (ii) Expansion action among UN Bank and WFP of primary health care services to agencies, consischildren; (iii) Enhanced Outreach tent approaches Strategy (EOS) for the Child between partners Survival Programme aiming at and concrete reducing the mortality rate; of efforts at country mothers and children and increaslevel to reduce ing access to health care for the child mortality; (ii) target group and provide suppleMobilize global mentary food; (iv) Convene and national national and international events political will, to increase access to and coverage commitments and of essential maternal and child adequate resources care services; (v) Encouraging to reduce child better use of existing resources to deaths. address identified needs; (vi) Advocating, at global and country levels, for additional resources at the national level to scale up programmes.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 4. Reduce child mortality Interagency (i) Provide global WHO, (i) Joint development and use of working group guidance on improv- UNICEF and tools for planning, policy definion Integrated ing family and World Bank tion, and implementation; (ii) Management of community practices Joint development of regional and Childhood with the greatest country policies and plans; (iii) Illness (IMCI) impact on child surSharing of organization or counvival, growth and try-specific tools and experiences; development; (ii) (iv) Website developed to make Increase intertools and experiences available. agency support for best practices on management of childhood illness. 5. Improve maternal health Special Promote, coordinate, UNDP, A global research partnership to Programme of conduct and evaluate UNFPA, strengthen the evidence base and Research, global research and WHO, World foster knowledge-sharing to deDevelopment development in Bank and a velop interventions in sexual and and Research sexual and reproduc- wide range of reproductive health that contribute Training in tive health, including other UN to making pregnancy safer for Human Repro- maternal and newagencies women and their newborn by duction born health, family promoting best practices during planning, the prevenpregnancy, childbirth and the tion of unsafe aborpostpartum period, and by pretion, and the control venting unsafe abortion through of sexually transmitgiving couples the means to plan ted and other reprotheir families. ductive tract infections. Inter-Agency Collaborate on UNFPA, (i) Development of Standards for Working development of UNHCR, RH services in emergencies and Group on standards and protoUNICEF, Field Manual on RH in refugee Reproductive cols for pro-vision of WHO and settings; (ii) Development and Health in Crisis reproductive health UNAIDS regular revision of Emergency RH Situations (RH) services in kits (pre-packaged sets of medihumanitarian cine, equipment, supplies for varisettings and ous levels of health care); (iii) operational and reRegular technical meetings for search cooperation. review of field experience and for collaborative research; (iv) Recent extensive 10 year evaluation of RH in emergency situations.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 6. Combat HIV/AIDS, malaria and other diseases FAO-Emergency Redress interFAO, WHO, Collaboration in disease informaPrevention national spread OIE-WTO, tion functions, early warning, transof animal IAEA, World boundary animal disease control System— disease, Bank, UNEP strategy development, standard Livestock veterinary and UNDP setting, world reference centres and (EMPRES), the public health labs, regional networks for epideEmergency agents and miological surveillance, laboratory Centre for pathogens diagnosis, harmonization of control Transboundary emerging in the and prevention activities, continAnimal Diseases interface of gency planning, early reaction and (ECTAD), the animals and emergency response plus field proGlobal gramme support. Rinderpest Eradi- humans. cation Programme (GREP), the European Commission for Foot and Mouth Disease (EU-FMD), the Programme Against African Trypanosomiasis (PAAT) and the Caribbean Amblyomma Programme (CAP) The ‘3 by 5’ Treat 3 million WHO, Joint efforts on the most appropriate initiative people with UNAIDS, model of care and close collaboraanti-retroviral UNHCR, tion on estimating the total resource medicines by UNICEF, needs for the initiative over the the year 2005. WFP, UNDP, years 2004-2005. UNFPA, UNODC, ILO, UNESCO and World Bank

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 6. Combat HIV/AIDS, malaria and other diseases Roll Back Reduce human (i) Global (i) Strengthening health systems to Malaria Project suffering and level: WHO ensure better delivery of health care, economic losses and UNICEF, especially at district and community due to malaria. World Bank levels; (ii) Ensuring the proper and and UNDP. (ii) expanded use of insecticide-treated Regional level: mosquito nets; (iii) Ensuring adeWHO and quate access to basic health care and UNICEF. (iii) training of healthcare workers; (iv) Country level: Encouraging the development of UNESCO and simpler and more effective means of FAO administering medicines such as training of village health workers, mothers and drug peddlers on early and appropriate treatment of malaria, especially for children; (v) Encouraging the development of more effective and new anti-malaria drugs and vaccines. Inter-agency Advocate for and WHO, (i) Agreement on six core indicators collaboration to increase proUNICEF, for preventing mother to child prevent HIV in gramming in: (i) UNFPA, transmission (PMTCT); (ii) A manwomen in Preventing HIV World Bank ual on monitoring and evaluation of reproductive infection in and UNAIDS PMTCT programmes to guide the age, especially women development of regional and counpregnant (especially try-level goals and monitoring and women; to young and pregevaluation plans, and harmonize prevent mother nant women; (ii) efforts among UN agencies and key to child Preventing collaborating institutions; (iii) An transmission of unintended advocacy brochure developed, covHIV; to provide pregnancies in ering such topics as success stories, treatment, care, women living lessons learned and future chaland support to with HIV; (iii) lenges and evidence of the effecmothers Preventing HIV tiveness of the recommended intertransmission ventions; (iv) Framework for priorfrom pregnant ity actions on HIV and infant feedwomen living ing endorsed by several UN agenwith HIV to cies; (v) Support for country spechildren; (iv) cific action plans and scaling up of Providing PMTCT services; (vi) Country astreatment, care sessment missions and programme and support for reviews to develop and disseminate mothers living lessons learned; (vii) Generic trainwith HIV and ing curriculum developed and pilot their families. tested in the Caribbean and Africa; (viii) Support for regional meetings on HIV and infant feeding to train health workers.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 6. Combat HIV/AIDS, malaria and other diseases Inter-agency Mobilize UNESCO (i) ‘HIV/AIDS and Education: A Stracollaboration to commitment to (lead tegic Approach’ available electronically promote life preventive agency), in three languages; (ii) Policy package skills education education and UNDP, for education decision-makers; (iii) approaches for to support the UNFPA, Evidence-based advocacy paper followin-school and exchange of UNICEF, ing on from the Strategic Approach; out-of-school information on UNODC, (iv) Communication and advocacy: youth Education and WHO, World policy for interagency collaboration HIV/AIDS. Bank, ILO and advocacy developed and made and UNAIDS available for use; (v) Readiness Survey of national level policy and practice in education and HIV/AIDS; (vi) Technical resource facilities to help countries respond to the impact of AIDS in the education sector:, effective preventive education sector responses developed and implemented; (vii) Training on Accelerating the Education Sector Response to HIV/AIDS in Africa; (viii) Promote the Focusing Resources on Effective School Health (FRESH ) framework; Inter-agency Enhance UNFPA (i) Monitoring and Evaluation Guide collaboration to programme (convening including options for targets and indienhance youth- approaches on organizacators for HIV/AIDS prevention interfriendly reproHIV/AIDS tion), WHO, ventions for young people; (ii) Global ductive and prevention UNICEF, consultation on policies and prosexual health among young UNESCO, grammes to achieve the global goals on services people at the UNDP, young people and HIV/AIDS; (iii) Puboperational/ UNODC, lication of ‘Protecting Young People country-level. ILO and from HIV and AIDS: The Role of UNAIDS Health Services,’ based on the outcome of a global consultation. UN Regional Deliver UNDP (con(i) Development of agreements on moTask Force on regional vening bility-related HIV vulnerability reducMobility and support to agency), tion; (ii) Development of the Regional HIV countries and UNAIDS, Strategy and Joint Action Programmes Vulnerability improve WHO, on migrant workers’ HIV vulnerability; Reduction in coordination on UNESCO, (iii) Strengthening of partnership of Asia issues of World Bank national AIDS authorities with the agmobility and and IOM riculture, infrastructure construction, HIV maritime and transport sectors; (iv) vulnerability Establishment of the Early Warning reduction. Rapid Response System (EWRRS) as an effective tool to build regional HIV resilience.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 6. Combat HIV/AIDS, malaria and other diseases Inter-agency HIV/AIDS UNODC Scaling up HIV/AIDS prevention and efforts for prevention and (lead care programmes targeting IDUs at prevention and care responses agency), country-level, including: (i) Mapping care of associated with UNICEF, of the UN system’s support for national HIV/AIDS injecting drug WHO, efforts on HIV/AIDS and IDU, and among injecting use and in UNAIDS, circulation of the report; (ii) Developdrug users prison settings. UNDP, ment and circulation of guidelines on (IDUs) and in UNESCO capacity building for UN Theme prison settings and World Groups on HIV/AIDS; (iii) Regional Bank mobilization and technical support on HIV prevention among injecting drug users. Interagency (i) Provide WHO (i) An e-space and various reference Standing HIV services to (convener) materials, including Guidelines on Committee on persons in UNHCR, HIV/AIDS in emergency settings creHIV/AIDS in emergency WFP, ated; (ii) The UN Disaster Management emergency settings, inUNICEF, Training Programme (DMTP) used as settings cluding conflict WHO, platform to develop a training module areas, and to UNFPA, to respond to the HIV/AIDS problem in those who are World Bank a crisis setting, with a multi-sectoral forcibly and UNAIDS perspective, both for humanitarian and displaced; (ii) development actors from UN Country Address the Teams, national authorities, NGOs and response to the other stakeholders; (iii) Great Lakes HIV/AIDS Initiative on AIDS, with a refugee, problem in internally displaced person, returnee crisis settings. and host surrounding community component; (iv) Forced and Voluntary Migration symposium and satellite session; (v) Epidemiological research by UNHCR and others for groups in conflict and displaced situations that have changed the perception of HIV in such situations; (vi) Guidelines developed with involvement of all members of the Interagency Standing Committee Task Force on HIV/AIDS in emergency settings, field peer-reviewed and published.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 6. Combat HIV/AIDS, malaria and other diseases Inter-Agency Prevention of ILO (lead (i) Assessment of UN HIV/AIDS poliTask Team on HIV and managency), cies and their compliance with the key HIV/AIDS in agement/ mitiFAO, IFAD, principles of the ILO Code of Practice; the World of gation of the UNESCO, (ii) Development of a set of indicators Work impact of IOM, to monitor the implementation and efAIDS on the OHCHR, fectiveness of HIV/AIDS workspace world of work; UNAIDS policies and programmes. care and supSecretariat, port of workers UNDP, infected and UNIFEM, affected by UNFPA, UNHIV/AIDS; HABITAT, elimination of UNHCR, stigma and UNICEF, discrimination UNOPS, on the basis of WHO, WIPO real or perand World ceived HIV Bank status. Global (i) Highlight UNFPA, Advocacy for action covers: (i) PreCoalition on the effects of UNAIDS venting HIV infection among young Women and HIV and AIDS Secretariat, women and girls; (ii) Reducing vioAIDS on women and UNIFEM, lence against women; (iii) Protecting girls through WHO, FAO the property and inheritance rights of global and and UNICEF women and girls; (iv) Ensuring women national and girls have equal access to care and advocacy; treatment; (v) Supporting improved (ii) Stimulate community-based care, with a special concrete and focus on women and girls ; (vi) Proeffective action moting access to new prevention opto prevent the tions for women, including female conspread of HIV. doms and microbicides; (vii) Supporting ongoing efforts towards universal education for girls.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability Global EnviProvide new and Implement(i) Since 1991, GEF has provided ronment Faciladditional grant and ing agencies: grants to more than 1,300 projects ity (GEF) concessional fundWorld Bank, in 140 countries, providing USD ing to meet the inUNEP and 4.5 billion in grants and generatcremental costs of UNDP. Exeing USD 14.5 billion in comeasures to achieve cuting agenfinancing from other partners for global environcies: IFAD, projects in developing countries mental benefits in UNIDO, and countries with economies in the protection of IAEA, FAO transition. 32 donor countries biological diversity; and IMO pledged USD 3 billion in GEF the reduction of funds for operations between 2002 greenhouse gases; and 2006. (ii) As the financial the protection of mechanism for four international international waters; environmental conventions, the the prevention and GEF helps fund initiatives that reduction of releases assist developing countries in of persistent organic meeting the objectives of the conpollutants (POPs); ventions. GEF also collaborates the reduction of land closely with other treaties and degradation, primaragreements. ily desertification and deforestation; and the protection of the ozone layer. UN-Water Coordinate, impleFAO, World Has been charged with important ment and follow-up Bank, series of mandates both from the the World Summit UNESCO, General Assembly and the Comon Sustainable DeWHO, mission on Sustainable Developvelopment (WSSD) WMO, ment. The World Water water agenda UNIDO, Development Report is the throughout the UN IAEA, principal collaborative product of system in collabora- UNDP, UN-Water. A second report is tion with other UNEP, scheduled to be launch at the stakeholders. UNHCR, fourth World Water Forum in UNMexico City in 2006. UN-Water HABITAT, is also responsible for organizing UNU/INWE the annual UN World Water Day H, UNand the UN Decade of Water, DESA, UN2005-2015. ECA, UNECE, UNECLAC, UNESCAP, UNESCWA, CBD and UNFCCC

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability World Water Develop tools and FAO, World (i) Assessing the state of the Assessment skills to achieve a Bank, world’s freshwater resources and Programme better understanding UNESCO, ecosystems; (ii) Identifying criti(WWAP) of basic processes, WHO, cal issues and problems; (iii) management WMO, Developing indicators and practices and UNIDO, measure progress towards policies that will IAEA, achieving sustainable use of water help improve the UNDP, resources; (iv) Helping countries supply and quality of UNEP, develop their own assessment global freshwater UNICEF, capacity; (v) Documenting resources. UNHCR, lessons learned and publish a UNWorld Water Development HABITAT, Report (WWDR) at regular UNU/ intervals. INWEH, UNDESA, UN-ECA, UN-ECE, UN-ECLAC, UN-ESCAP, UN-ESCWA, CBD and UNFCCC 2005 Water Coordinate and UNEP, (i) Compilation of national 2005 Resources strengthen support to UNDP, status reports; (ii) Assisting and Alliance developing countries World Bank, enabling regional and subInitiative to meet the World UNregional networks for knowledge Summit on SustainHABITAT, sharing on lessons learned and for able Development UN-DESA concept development in support (WSSD) target of and of integrated water resource mandeveloping UNESCO agement; (iii) Development of integrated water specific international guidance resource documents, capacity development management and and technical assistance to naefficiency plans by tional activities related to the 2005. 2005 integrated water resource management target. Global EnviImprove water qualUNEP, FAO, Provides authoritative, scientifironment ity monitoring and IAEA, cally-sound information on the Monitoring assessment capabiliUNDP, state and trends of global inland System ties in participating WHO, water quality required as a basis (GEMS)/ countries and deterUNESCO, for the sustainable management of Water mine the status and World Bank the world’s freshwater to support trends of regional and WMO global environmental assessments and global water and decision-making processes. quality.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability Water for Addresses different UNPromotes a demand-side perspecAfrica’s Cities aspects of water for HABITAT, tive of water management and Africa’s largest UNEP, and water pollution control methods, cities. other partners gender mainstreaming and imincluding the provement of water access for World Bank urban poor and peri-urban areas. A similar programme ‘Water for Asian Cities’ has also been launched. Cities Alliance Improve the living UN(i) Pools the resources and exconditions of the HABITAT, perience of Alliance partners to urban poor through World Bank foster new tools, practical apthe preparation of and UNEP proaches and an exchange of the City knowledge to promote city develDevelopment opment strategies, pro-poor poliStrategies and cies and prosperous cities without large-scale slum slums; (ii) Focuses on the city and upgrading its region rather than on sectors; programmes. (iii) Promotes partnerships between local and national governments, and those organizations directly representing the urban poor; (iv) Promotes inclusive urban citizenship emphasizing active consultation by local authorities with the urban poor; (v) Scale up solutions promoted by local authorities and the urban poor; (vi) Promotes engaging slum dwellers as partners, not problems; (vii) Promotes the role of women in city development; (viii) Engages potential investment partners, encouraging the development of new public and private sector lending and investment instruments to expand the level of resources reaching local authorities and the urban poor, enabling them to build their assets and income.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability UN-Energy Ensures coherence in UN-DESA, (i) UN-Energy convened its first the UN system’s UN-ECA, meeting on 2 July 2004 following multi-disciplinary UN-ECE, a meeting of an ad hoc task force response to the WSSD UN-ESCWA, on energy on 14-15 April 2004 and to ensure the efESCAP, and the subsequent approval of its fective engagement of UNCTAD, terms of reference by HLCP in non-UN stakeholders UNDP, May 2004; (ii) A work proin implementing UNEP, FAO, gramme has been elaborated that WSSD energy-related IAEA, focuses on providing input to the decisions. UNFCCC, fourteenth and fifteenth sessions UNESCO, of the Commission on Sustainable UNIDO, Development (CSD), promoting WIPO, UNpolicy coherence and galvanizing HABITAT, inter-agency operational coherUNICEF, ence. WMO and World Bank Global Enhance the capacity UNEP, (i) Building knowledge and sharNetwork on of national institutions UNIDO, ing lessons learned; (ii) ImprovEnergy for to develop policies and UNDP, UNing capabilities, i.e., capacity deSustainable undertake planning DESA and velopment on multiple levels; (iii) Development and research efforts World Bank Facilitating development of new (GNESD) that integrate solutions approaches and projects; (iv) to energy, environment Generating new knowledge and development chalthrough structuring energy policy lenges, and reduce research projects. pollution from energy activities while allowing developing countries to meet growing needs for energy services. Clean Fuels Promote improved UNEP, UN(i) Help developing countries and Vehicles urban air quality in DESA, develop action plans to complete Partnership developing countries World Bank the elimination of leaded gasoline through the promotion and WHOand start to phase out sulphur in of clean fuels and vePAHO diesel and gasoline fuels; (ii) Prohicles. vide a platform for exchange of experiences and successful practices, as well as technical assistance; (iii) Develop public outreach materials, educational programmes, and awareness campaigns; (iv) Adapt economic and planning tools for clean fuels and vehicles analyses in local settings.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability National (i) Promote clean UNIDO, (i) A comprehensive network of Cleaner Protechnologies and UNEP, NCPCs has been established covduction building of national UNDP, ILO, ering 30 countries; (ii) UNIDO is Centres cleaner production FAO, IFAD, cooperating with UNDP, ILO, (NCPC) capacities; (ii) Access WHO and FAO, IFAD, WHO, and the methods of analysis World Bank World Bank in the field of small and introduction of and medium enterprise developnew production procment, agro-industries and other esses at the highest sectors. (iii) The programme has international standard; established a total of 22 centres in (iii) Increase the apdeveloping countries and econoplication and raise mies in transition by the end of awareness of cleaner 2001; (iv) NCPCs have assisted production in industry companies to rationalize their and encourage the production processes and save inclusion of cleaner money on raw materials, energy, production measures water and water treatment; (v) in national environNCPCs are working with the mulmental policy and tinational chemical corporation legislation in developBASF, on eco-efficiency proing countries and grammes for small and mediumeconomies in transisized enterprises. tion. The MarraPromote international UN-DESA, (i) Identifying specific activities, kech Process: cooperation and inter- UNEP, tools, policies, measures and Inter-agency agency coordination UNIDO, UN- monitoring and assessment cooperation in support of national Habitat, mechanisms, including, where on the 10and regional activities UNCTAD, appropriate, life-cycle analysis year frameto change unsustainILO, UNDP and national indicators; (ii) work on able patterns of conand the Adopting and implementing polisustainable sumption and producSecretariat of cies and measures to promote consumption tion. the Basel sustainable consumption and proand Convention duction patterns, applying, inter production alia, the polluter-pays principle; (iii) Developing production and consumption policies to improve products and services; (iv) Developing awareness-raising programmes on the importance of sustainable consumption and production patterns, particularly among youth and relevant segments in all countries; (v) Developing and adopting consumer information tools to provide the information related to sustainable consumption and production.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability UN-Oceans Ensure effective inUN-DESA, (i) Establishing a workplan to formation sharing and UNidentify areas for enhanced coopcoherence in the wide DOALOS/ eration and collective action in spectrum of activities Legal support of the Millennium Develin the UN system Affairs, opment Goals, the Johannesburg relating to oceans and World Bank, Plan of Implementation and the coastal areas. UNDP, main topics addressed in UNGA’s UNEP, FAO, 5th Informal Consultative Process IAEA, (ICP) on Oceans and the Law of UNFCC, the Sea; (ii) Creating a database UNESCO, of active projects and a website. IMO, CBD and ISA Global Serve as a source of UNEP, GPA provides for implementation Programme conceptual and practiWHO. IAEA, through partnerships, including of Action for cal guidance to be FAO, UNthrough its clearing-house nodes, the Protection drawn upon by naHABITAT, i.e. sewage, persistent organic of the Marine tional and/or regional UNDP, GEF, pollutants, heavy metals and Environment authorities for devising IOC/ physical alterations, radioactive from Landand implementing UNESCO, substances, nutrients and Based sustained action to UNIDO, sediment mobilization, oils and Activities prevent, reduce, conWorld Bank, litter. (GPA) trol and/or eliminate WMO and marine degradation IMO from land-based activities. Global Obtain and make WMO, IOC/ (i) Climate system monitoring, Climate available to all potenUNESCO climate change detection and Observing tial users observations and UNEP monitoring the impacts of and the System and information response to climate change, espe(GCOS) needed to address clicially in terrestrial ecosystems mate-related issues. and mean sea-level; (ii) Collecting climate data for application to national economic development; (iii) Research towards improved understanding, modelling and prediction of the climate system. Global Facilitate access to FAO, UNEP, Observations, modelling and Terrestrial information on terresUNESCO analysis of terrestrial ecosystems Observing trial ecosystems to aid and WMO to support sustainable System researchers and policy development. (GTOS) makers in detecting and managing global and regional environmental change.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability Millennium Serve the needs of World Bank, (i) Identifying priorities for acEcosystem decision makers and UNEP, tion; (ii) Developing and providAssessment the public for scientific UNDP, FAO, ing tools for planning and man(MEA) information concernWHO, agement; (iii) Providing foreing the consequences UNESCO, sight/assessments concerning the of ecosystem change and the consequences of decisions affectfor human well-being Secretariats ing ecosystems; (iv) Identifying and options for reof the GEF, response options to achieve husponding to those UN-CCD, man development and sustainabilchanges. UNFCCC ity goals; (v) Helping build indiand CBD vidual and institutional capacity to undertake integrated ecosystem assessments and to act on their findings. Collaborative (i) Support the work of UN-DESA, (i) Providing information and Partnership the UN Forum on For- UNEP, technical assistance to countries; on Forests ests (UNFF) and its UNDP, FAO, (ii) Facilitating regional and in(CPF) member countries; (ii) World Bank, ternational initiatives; (iii) IdentiFoster increased coop- CBD, fying and mobilizing financial eration and coordinaUNFCCC, resources; (iv) Strengthening potion on forests. UNCCD and litical support for sustainable forGEF est management; (v) Providing expertise and advisory services to UNFF. Ecosystems Promote inter-linkages UNEP, FAO, Promoting thematic joint Conservation and complementariUNESCO, programming and advice on the Group (ECG) ties, encouraging the UNDP and development and implementation compatibility of difWorld Bank of relevant ecosystems and ferent approaches to genetic resources conservation common problems, activities. and enhancing synergy and harmony among and between work programmes of the Group's members with those of the global environmental conventions. International Pursue implementation UNEP, Mobilizing governments and a Coral Reef of Chapter 17 of UNDP, FAO, wide range of other stakeholders Initiative Agenda 21 and other IOC/UNESC to improve management practices, (ICRI) international ConvenO, World increase capacity and political tions and agreements Bank, CBD support and share information on for the conservation of and CITES the health of these ecosystems. coral reefs and related ecosystems.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability International Improve, strengthen FAO, UNEP, Providing an instrument to imPartnership and pro-mote greater UNDP, plement the WSSD Plan of Imfor cooperation between UNESCO, plementation as agreed in Sustainable all mountain stakeUNU, World paragraph 42, on Mountains, with Development holders, such as doBank and CBD actions at all levels. in Mountain nors, implementing Regions agencies, NGOs, private sector, mountain communities, academia and other field practitioners. Inter-Agency (i) Serve as the main FAO, ITU, Working group II on earlyTask Force forum within the UNDP, UNEP, warning, led by UNEP (members for Disaster United Nations UNESCO, UN- include UNEP, FAO, UNCCD, Reduction of system for devising HABITAT, UNDP, UNESCO, UNthe UN strategies and poliWFP, WHO, HABITAT and WMO), prepared International cies for the reduction WMO and a partnership proposal launched at Strategy for of natural hazards; World Bank WSSD on ‘Integrating early Disaster (ii) Identify gaps in warning and disaster risk manReduction disaster reduction agement into the sustainable (ISDR) policies and development agenda and programmes and practice’ (involving, inter alia, recommend remedial ISDR, UNEP, WMO and the action; (iii) Provide UNEP/ OCHA joint unit) which policy guidance to looks to strengthen existing early the ISDR secretariat; warning systems and disaster risk (iv) Convene ad hoc management strategies at global, meetings of experts regional and national levels and to on issues related to highlight their important relation disaster reduction. to sustainable development. The Partnership is about utilizing effectively and efficiently the existing resources allocated among, and efforts undertaken by, partners and key-stakeholders. Awareness Raise awareness and UNEP, in coUNEP, UNIDO and WHO have and Preparimprove the preparoperation with an inter-agency programme which edness for edness of communivarious partbrings together expertise in Emergencies ties exposed to envi- ners, including health, the environment, industry at Local ronmental emergenWHO, (manand energy, for effective risk Level cies, particularly agement of management. programme those related to inchemical acci(APELL) dustrial activities and dents through natural disaster preIPCS), IMO, paredness. UNIDO and IAEA

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 7. Ensure environmental sustainability ProVention Reduce disaster imWorld Bank, Functions as a network to share Consortium pacts in developing UNEP, knowledge between National countries. PAHO/WHO, Ozone Units (NOUs) and connect WFP, UNDP, governments, international orWMO, ISDR ganizations, academic instituand UNtions, the private sector, civil ECLAC society organizations and to leverage resources to reduce disaster risk. Partnership (i) Enhance capacity UNEP, UNDP, (i) Development of environfor the of African countries FAO and mental law materials; (ii) Development in implementation of World Bank Compilation of judicial decisions of Environexisting environand national legislative texts remental Laws mental laws; (ii) lated to environment; (iii) Trainand Develop legal ining courses; (iv) Development Institutions in struments to fill gaps and strengthening of environAfrica in the existing laws; mental law courses. (PADELIA) (iii) Enhance capacity for sustained development and implementation of environmental law. The Africa (i) Clean up stockWorld Bank, The Africa Stockpiles ProStockpiles piled pesticides and FAO, UNECA, gramme brings together the skills, Programme pesticideUNEP, expertise and resources of a di(ASP) contaminated waste UNIDO and verse group of stakeholders, (e.g., containers and Secretariat of enabling national leader-ship to equipment) in Africa the Basel Concarry out country-led activities. in an environmenvention By reducing and removing longtally sound manner; standing toxic threats throughout (ii) Catalyze develAfrica, ASP promotes improved opment of prevenpublic health, poverty reduction, tion measures; (iii) and environmental safety— Provide capacity critical elements of sustainable building and institudevelopment. tional strengthening on important chemicals-related issues. Global CamImprove the lives of UNAdvocating a right-based appaign for people living in inHABITAT, proach to housing and urban povSecure Tenformal settlements. UNDP and erty reduction and promote ure UNHCHR norms, guidelines and action plans for large-scale slum upgrading.

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 8. Develop a global partnership for development Inter-agency Support ICT-forITU, The Task force serves as a multisupport for the development. UNCTAD, stakeholder mechanism of the Information UNDP, UN system, donors, programme and CommuniUNESCO, countries, private industry, cations (ICT) UNFIP, World financing trusts and foundations Task Force Bank and and other stakeholders. It is WIPO facilitating the pooling of relevant experience of both developed and developing countries and the sharing of lessons learned. Initiative to Help developing UNIDO, UNIDO has been working closely overcome countries overUNCTAD and with UNCTAD, WTO and the technical come technical WTO International Organization for barriers to barriers to trade. Standardization to help developtrade ing countries overcome technical barriers to trade and gain greater access to the global market. Multi-agency A multi-agency UNCTAD, Designing and implementing a technical technical assisUNIDO, the coordinated effort to increase the assistance tance programme Multilateral level of FDI flows into LDCs and programme on launched at the Investment to maximize the benefits generForeign Direct Third United NaGuarantee ated by FDI. Investment tions Conference Agency (FDI) on the Least De(MIGA) and veloped Countries the Foreign to increase the Investment level of foreign Advisory Serdirect investment vice (FIAS) of (FDI) flows to the World Bank Least Developed Group Countries (LDCs). Joint Integrated Build capacity on ITC, UNCTAD Pioneering a bottom-up, Technical multilateral trade and WTO integrated and comprehensive Assistance issues involving approach to delivery of tradeProgramme partner-ship related technical assistance at the (JITAP) for among their orcountry and inter-country levels. selected least ganizations and developed and eight beneficiary other African countries (Benin, countries Burkina Faso, Côte d’Ivoire, Ghana, Kenya, United Republic of Tanzania, Tunisia and Uganda).

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Mechanisms Objectives UN Partners Initiatives/Activities A. POVERTY ERADICATION AND SUSTAINABLE DEVELOPMENT 8. Develop a global partnership for development Inter-agency Support developing ILO, WTO, Exchange of information, collaboration countries in reducing the World Bank, sharing of knowledge, best on trade cost of their inter-national FAO, IMF, use of UN system compefacilitation trade transactions and imUNIDO, UN- tencies and joint initiatives prove their market access. ECLAC, UN- to address trade facilitation ECE, UNissues and assist developing ESCAP and countries in this regard. UNCTAD B. HUMAN RIGHTS, DEMOCRACY AND GOOD GOVERNANCE 1. Advancing human rights, democracy and the rule of law Action 2 (i) Develop the capacity of OHCHR, (i) Practical tools for knowlInter-Agency UN country teams to supUNDP, edge-sharing and capacityInitiative port the establishment, UNICEF, building in human rights for strengthening and sustainUNHCR, UN country teams and their ability of national human WFP, national partners; (ii) Inrights protection systems; UNDPKO, creasing the number and (ii) Support UN country UNDPA, quality of CCAs and teams to effectively inteUNRWA, UNDAFs and other plangrate human rights into their Office of the ning instruments that have development and humanitar- Special systematically integrated ian activities, in Common Representahuman rights; (iii) PromotCountry Assessments tive of the ing integration of human (CCA) and United Nations SG/CAC, rights in the PRSP process Development Assistance WHO, and MDG reporting; (iv) Frameworks (UNDAF), the UNFPA and Increasing the number of Poverty Reduction Strategy FAO stand-alone Theme Groups Paper (PRSP) process, on human rights established MDG reporting and any in country offices and workother UN common planning ing effectively to discuss and programmatic frameand coordinate human rights works as well as national issues at the country level planning instruments; (iii) and facilitate engagement of Encourage collaborative national partners, and supactions and joint programport implementation of ming on human rights in international human rights area of human rights educaobligations; (v) Joint protion, strengthening the rule gramming among UN agenof law, protection of the cies to support national rights of vulnerable and efforts in areas of human marginalized groups and rights education, strengthenadherence to international ing rule of law, protection of human rights and humanirights of vulnerable and tarian law; (iv) Give promarginalized groups and grammatic responses in adherence to international implementing the recomhuman rights and humanimendations of UN human tarian law. rights mechanisms.

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Mechanisms Objectives UN Partners Initiatives/Activities B. HUMAN RIGHTS, DEMOCRACY AND GOOD GOVERNANCE 1. Advancing human rights, democracy and the rule of law Capacity (i) Further enhance the UN System (i) Training workshops carried building in capacities of OHCHR Staff College, out for OHCHR staff at the UN human rights staff in dealing with OHCHR and System Staff College. (ii) The and human development issues UN Country College and OHCHR provided rights-based and the rights-base Teams in-country training in nine counapproach to approach to programtries to help develop a rightsprogramming ming; (ii) Further based approach to the enhanced the knowlCCA/UNDAF process. edge of UN Country Team members in human rights and rights-based approach to programming. Global CamPromote secure forms UN-Habitat, Raise awareness of housing rights paign on of tenure for the poorWorld Bank, of urban poor, advocacy camSecure est populations, UN-ESCAP paigns for secure tenure, slum Tenure especially those living and UNupgrading initiatives, establishin informal settlements OHCHR ment of housing rights composite and slums in cities. monitoring/indicators, publications and reports. 2. Promoting good governance International Strengthening interna- UNDP, Providing a platform for exGroup for tional anti-corruption UNESCO, change of views, information, Anticoordination and colUN-DESA, experiences and ‘best practices’ Corruption laboration in order to World Bank, on anti-corruption activities for Coordination avoid undue duplicaOIOS, the purpose of enhancing the tion and to ensure efUNODC and impact of these activities, includfective and efficient UN-DPI ing support for the UN Convenuse of existing retion against Corruption. sources, using systems already in place at the regional and national level. Global Bring together govUN-DESA, (i) Providing a platform for introForums on ernment officials, inUNDP, UNducing various countries’ experiReinventing ternational organizaHABITAT, ences in government reinvention, Government tions, NGOs, to disUNICEF and seeking a framework and strategy cuss how World Bank for future innovations in governgovernments’ perance; (ii) Promoting cooperation formance and capacibetween government, the private ties can be improved sector and civil society organizato support the delivery tions to improve the quality of of public services and governance at national and local development in levels; (iii) Discussing key issues general. regarding participatory and transparent governance to achieve the MDGs.

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Mechanisms Objectives UN Partners Initiatives/Activities B. HUMAN RIGHTS, DEMOCRACY AND GOOD GOVERNANCE 2. Promoting good governance Inter-agency (i) Assess the state UNDP, UNCDF, (i) An annual event that brings support for of governance in UN-ECA, together African leaders, donors, the African Africa and discuss UNHCHR, and representatives of civil sociGovernance how to make imUNHCR, UNety and the private sector to disForum (AGF) provements; (ii) OCHA, UNcuss a thematic subject that is Promote DESA, UNconsidered to be pivotal in the democracy and OSAA, UNDPA, advancement of good governance good governance UNICEF, on the African continent. (ii) in the UNFPA, WFP, Supporting the secretariat of the context of World Bank and Peer Review Mechanism. NEPAD. IMF United NaPromote the sharUN-DESA, UN (i) Online information, training, tions Public ing of knowledge, Center for Readvisory, conference and direcAdministraexperiences and gional Developtory services; (ii) Access to retion Network best practices ment, UNgional experience in the practice (UNPAN) throughout the INSTRAW, UN- of public policy development and world in sound ECA, UNmanagement at the regional, napublic policies, ESCWA, UNtional and local levels; (iii) Caeffective public ESCAP, UNTC, pacity-building and south-south administration and UN-ECE and cooperation in efficient civil serUN-ECLAC information and knowledge vices, through camanagement; (iv) Access to pacity-building and worldwide information in all cooperation among areas of public sector policy and the United Nations management; (v) Demand-driven Member States, and interactive two-way provider with emphasis on of information and knowledge south-south coopnetwork. eration. Global CamApply socially UN-HABITAT Supports principles of good urban paign on Urintegrated, particiand UNDP, governance through advocacy, ban Governpatory and acUNESCO and collaborating and engaging with ance and the countable urban UNICEF partners. The Urban Management Urban governance pracProgramme represents a major Millennium tices. effort by UN-HABITAT and Partnership UNDP to strengthen the contribution that cities and towns in developing countries make towards the implementation of the MDGs at the local level. It works through anchor, local and national institutions to provide a platform for partners to discuss emerging themes and the replication of good practices in local democracy and good governance.

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Mechanisms Objectives UN Partners Initiatives/Activities C. PREVENTING AND MANAGING ARMED CONFLICT 1. Enhancing post conflict peace-building Collaboration Ensure that the UNDG, UN-DPA, Joint analyses and/or recovery between CCA/ UNDAF UN-OSAA, UNplans developed by UN Country UNDG and process takes DPKO, UN-DDA, Teams. UNinto account UN-OCHA, Executive peace-building OSRSG/CAC, Committee and conflict UNDP, UNHCHR, for Peace and prevention UNHCR, Security aspects. UNICEF, World (ECPS)/ Bank, Executive UNSECOORD, Committee UNODC, WFP, for UN-DESA, Humanitarian OSAGI, UNDPI, Affairs UNICEF, (ECHA) OHCHR, UNDPKO, UNRWA, WHO, FAO and UNFPA Inter-agency Further enUN System Staff Training workshops on Early Capacity hance the caCollege, UN-DPA, Warning and Preventive Measures Building in pacities of UN UN-OCHA and help to build the capacities of UN Early Warnstaff in conflict other participating staff members in these areas. ing and Preprevention and UN agencies ventive peacebuilding. Measures Training Inter-Agency Develop a culUN-DPA, (i) The Group was established by Resource ture of prevenUNICEF, the ECPS in 2000 in the context of Group on tion within the OHCHR, UNDP, the preparation of the 2001’s SecrePrevention UN system. UNEP, WFP, tary-General’s Report on the PreFAO, UN-DDA, vention of Armed Conflict; (ii) The UN-OCHA, UNGroup has evolved to become the DESA, UN-DPI, inter-agency mechanism that conUN-DPKO/BPU, siders the implementation of the UN-OLA, SG’s reports as well as of Security UNHCR and IMF Council res. 1366 (2001) and General Assembly res. 57/337; (iii) The Group has been involved in the preparation of the 2003 SG’s Interim Report on prevention and is in the process of preparing the 2005 SG’s Report on prevention; (vi) The Group's activities are not operational in nature, focusing instead on policy planning and thematic discussions.

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Mechanisms Objectives UN Partners Initiatives/Activities C. PREVENTING AND MANAGING ARMED CONFLICT 2. Promoting counter-terrorism measures Policy Identify the impliUN-DPA, UNThe Policy Working Group Working cations and broad OLA, UNODC, presented its report, containing Group on the policy dimensions UN-DESA, 31 recommendations, to the United Nations of terrorism for the UN-DDA, UN- Secretary-General in August and Terrorism United Nations and OSAA, EOSG 2002 (A/57/273-S/2002/875). formulate recomand the mendations. Personal Representative of the SecretaryGeneral for the United Nations Year of Dialogue among Civilizations, UNHCR and UN-DPKO

DOCUMENT TWO

DELIVERING AS ONE HIGH-LEVEL PANEL ON UNITED NATIONS SYSTEM-WIDE COHERENCE IN THE AREAS OF DEVELOPMENT, HUMANITARIAN ASSISTANCE AND THE ENVIRONMENT UN REPORT A/61/583, 20 NOVEMBER 2006 TABLE OF CONTENTS

Summary....................................................................................................... I The case for reform....................................................................................... II Development, humanitarian assistance and the environment ....................... A. Development: delivering as one at the country level............................... B. Humanitarian assistance and the transition from relief to development: strengthening the capacity to respond................................................. C. Environment: building a global consensus and capacity for action......... D. Cross-cutting issues: sustainable development, gender equality and human rights ....................................................................................... III Governance, funding and management......................................................... A. Governance: consolidating some functions, strengthening others........... B. Funding the United Nations system for results ....................................... C. Reforming United Nations system business practices: building institutions of public trust ................................................................... Annexes I Terms of reference of the Panel, issued on 15 February 2006...................... II Panel members.............................................................................................. III Panel secretariat ............................................................................................ IV Consultative process ..................................................................................... Acknowledgements.......................................................................................

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BOXES Box Page 1. One United Nations at the country level—key features .......................... 300 2. Mandate and structure of the consolidated gender entity ........................ 313

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BOXES (continued) Box 3. 4. 5. 6.

Role of the Global Leaders Forum .......................................................... Role and mandate of the Sustainable Development Board ..................... The role of the Development Policy and Operations Group ................... Funding the United Nations system for results .......................................

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SUMMARY In facing up to the challenges of their times, the world leaders of 60 years ago created new multilateral institutions—the United Nations, the International Monetary Fund and the World Bank—in the conviction that international cooperation was the best way to solve the challenges of the post-war world. Today we too face significant challenges: ours is an era of global change that is unprecedented in its speed, scope and scale. As the world becomes more interdependent, we are increasingly exposed to acute and growing social and economic inequalities. Poverty, environmental degradation, and lagging development exacerbate vulnerability and instability to the detriment of us all. Achieving the Millennium Development Goals and wider internationally agreed development goals is central to our global economic stability and prosperity. The United Nations played a crucial role in articulating the Millennium Development Goals. Now it needs to take action to achieve these and the other development goals and to support Governments in implementing their national plans. However, without ambitious and far-reaching reforms the United Nations will be unable to deliver on its promises and maintain its legitimate position at the heart of the multilateral system. Despite its unique legitimacy, including the universality of its membership, the status of the United Nations as a central actor in the multilateral system is undermined by a lack of focus on results, thereby failing, more than anyone else, the poorest and most vulnerable. The 2005 World Summit in New York gave new impetus to the need for United Nations reform. At the initiative of the Secretary-General, the High-level Panel on System-wide Coherence in the areas of development, humanitarian assistance and the environment has worked for over six months to consider how the United Nations system can most effectively respond to the global development, environmental and humanitarian challenges of the twenty-first century. We have undertaken a thorough assessment of the strengths and weaknesses of the United Nations system, holding consultations with stakeholders around the world. We commend the United Nations as the indispensable force that drives forward the discourse on human development by defining and creating a global consensus in support of the Millennium Development Goals and the other internationally agreed development goals; playing a leading role in developing the concept of sustainable development; responding rapidly to humanitarian disasters; and mobilizing international action for the protection of the environment. The United Nations system also continues to play an essential role as a convener, setting norms and standards and advising countries on their implementation at the global, regional, national and local levels. However, we have also seen how the work of the United Nations in the areas of development and the environment is often fragmented and weak. Inefficient and ineffective governance and unpredictable funding have contributed to policy incoherence, duplication and operational ineffectiveness across the system. Cooperation between organizations has been hindered by competition for funding, mission creep and outdated business practices.

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Delivering as one and overcoming systemic fragmentation is a central theme of our report. Taken as a whole, our recommendations could result in a step change in the way the United Nations operates at Headquarters, in each region and in each country. If implemented, the recommendations could deliver a better focus on performance, efficiency, accountability and results within the United Nations system, and could also enhance the role and voice of developing countries. These changes would secure and strengthen the role of the United Nations at the heart of the multilateral system. We have developed a set of clear recommendations that are based on the following five strategic directions: • Ensure coherence and consolidation of United Nations activities, in line with the principle of country ownership, at all levels (country, regional, Headquarters). • Establish appropriate governance, managerial and funding mechanisms to empower and support consolidation, and link the performance and results of United Nations organizations to their funding. • Overhaul business practices of the United Nations system to ensure a focus on outcomes, responsiveness to needs and the delivery of results by the United Nations system, as measured in advancing the Millennium Development Goals. • Ensure significant further opportunities for consolidation and effective delivery of ‘One United Nations’ through an in-depth review. • Undertake implementation urgently but not in an ill-planned and hasty manner that could compromise permanent and effective change. ‘One’ is a central concept in the present report: the United Nations needs to overcome its fragmentation and deliver as one through a stronger commitment to working together on the implementation of one strategy, in the pursuit of one set of goals. We have come up with ambitious but realistic recommendations with the potential to radically change the way the organizations operate at Headquarters, in each region and in each country so as to enable the United Nations to achieve more than the sum of its parts. The essence of our vision is for the United Nations to deliver as one in the areas of development, humanitarian assistance and the environment. The normative and analytic expertise of the United Nations, its operational and coordination capabilities and its advocacy role would be more effectively brought together at the country, regional and global levels. Member States should shape the governance structures, the funding framework and the business practices to make it so. A. ONE UNITED NATIONS FOR DEVELOPMENT—AT THE COUNTRY LEVEL We recommend the establishment of One United Nations at the country level, with one leader, one programme, one budget and, where appropriate, one office. One third of United Nations country programmes include more than 10 United Nations agencies and in almost one third of them, less than USD 2 million is spent by each United Nations agency. One United Nations should be based on a consolidation

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of all United Nations programme activities at the country level, where the country wishes it. The programme must be developed and owned by the country, in line with its own national priorities. Effective delivery requires a single budgetary framework. To manage the One United Nations country programme there needs to be one leader—an empowered resident coordinator. The resident coordinator shall be selected on the basis of merit and competition demonstrably open to candidates outside the United Nations Development Programme (UNDP) and the United Nations system. To ensure system-wide ownership of the resident coordinator system, the role of UNDP must change. It should focus and strengthen its operational work on policy coherence and positioning of the United Nations country team, and should withdraw from sectorfocused policy and capacity work being carried out by other United Nations entities. We recommend that 5 One United Nations country pilots be established by 2007 and, subject to satisfactory review, 20 One United Nations country programmes by 2009, 40 by 2010 and all other appropriate programmes by 2012. B. ONE UNITED NATIONS FOR DEVELOPMENT—AT THE HEADQUARTERS LEVEL We recommend the establishment of a Sustainable Development Board to oversee the One United Nations country programmes. A coordinating board is necessary to provide oversight for the One United Nations country programme, in particular to provide system-wide coherence, ensure coordination and monitor the performance of global activities. We propose that the existing joint meetings of the boards of UNDP/the United Nations Population Fund (UNFPA), the United Nations Children’s Fund (UNICEF) and the World Food Programme (WFP) be merged into this strategic oversight body—the Sustainable Development Board—which would report to the Economic and Social Council. The Board should comprise a representative subset of Member States on the basis of equitable geographic representation, and should enhance the participation and voice of developing countries. The Board would be responsible for endorsing the One United Nations country programme, allocating funding and evaluating its performance in advancing the objectives agreed with the programme country. The Board should also maintain a strategic overview of the system to drive coordination and joint planning among all funds, programmes and agencies, and to monitor overlaps and gaps. We recommend that the Secretary-General appoint a Development Coordinator, with responsibility for the performance and accountability of United Nations development activities. The UNDP Administrator should serve as the Development Coordinator. The Development Coordinator should report to the Board and be supported by a high-level coordination group, comprising the heads of principal development agencies and an expert secretariat drawn from across the United Nations system. The evolution of the role of UNDP as manager of the resident coordinator system requires the establishment of a code of conduct and a firewall between its streamlined operational activities and other functions.

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We recommend that the Secretary-General establish an independent task force to further eliminate duplication within the United Nations system and consolidate United Nations entities, where necessary. We do not advocate a single United Nations entity because many individual agencies can best achieve their vital role in providing global public goods, advocacy, research, promoting best practices and establishing global norms and standards by operating individually in their specific sectors. However, it is clear that the United Nations system suffers from a large number of overlapping functions, coordination failures and policy inconsistencies. An independent task force should clearly delineate the roles performed by United Nations funds, programmes, specialized agencies and regional entities, including the United Nations Secretariat. It should make concrete recommendations for merging or consolidating duplicative functions and ensure the complementarity of mandates. The task force should report by the end of 2007 to the Secretary-General, with clear recommendations for early implementation. This exercise has the potential to release significant annual savings, possibly in the range of 20 per cent per annum; the exact amount should be assessed by analysis of the task force review. Efficiency savings should be recycled to the One United Nations country programmes. C. RESULTS-BASED FUNDING, PERFORMANCE AND ACCOUNTABILITY We recommend the establishment of a Millennium Development Goals funding mechanism to provide multi-year funding for the One United Nations country programmes as well as for agencies that are performing well. If the United Nations is to work more coherently and effectively, both at the country level and globally, significant changes are needed to the way donor funding is managed. Current United Nations funding patterns are highly fragmented, unpredictable and constrained by too much earmarking, which has encouraged duplication and inefficiency. This limits the United Nations and programme countries from making strategic decisions, and undermines the principles of multilateralism and country ownership. A new Millennium Development Goals funding mechanism for voluntary donor funding (public, private and United Nations organizations) would provide multi-year funding for the One United Nations country programmes as well as for agencies that are performing well. The Sustainable Development Board would govern this mechanism. Donor contributions would be voluntary and could be specified. There should also be additional funding available at the discretion of the Board to reward headquarters of funds, programmes and specialized agencies that are performing well and to fund programmatic gaps and priorities in the system. To deliver maximum impact in advancing country priorities, we urge donors to contribute multi-year funding and substantially to reduce earmarking. We recommend that United Nations organizations committed to and demonstrating reform receive full, multi-year core funding.

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Donors should support consolidated multi-year funding for the One United Nations country programme and core budgets of United Nations entities committed to reform. Donors would demonstrate by their actions that funding and performance are linked to results and reform. Multi-year funding frameworks can be managed to increase focus on strategic priorities. Funding cycles of United Nations funds and programmes should be aligned to facilitate overall strategic coordination of United Nations programmatic work. The assessed budgets of the specialized agencies should be reviewed to ensure that they have sufficient core resources to deliver against strategic mandates. The performance, funding and accountability of United Nations organizations are integrally linked. Funding must follow performance and reward results both for the One United Nations country programmes and Headquarters funding. The purpose of linking funding to performance is not to reduce funding but to improve outcomes. In fact, a more effective United Nations could be an important partner in effectively using additional official development assistance. The price of poor performance should not be paid by reduced United Nations funding into countries but by the management and institutions. A reformed United Nations system demonstrating improved outcomes would be better placed to capture increased aid. The Sustainable Development Board, assisted by a special Development Finance and Performance Unit in its secretariat, should publish internal evaluations of United Nations system spending and performance, as well as evaluations of the plans of individual funds, programmes and agencies, to which the Board would have access. The performance of United Nations organizations in advancing internationally agreed development goals should be measured. These assessments would inform funding decisions, both by donors making direct contributions and through the discretionary funding mechanism for the Millennium Development Goals to be made available to the Board as discussed above. The modernization and reform of business practices, to be led by the SecretaryGeneral, should be implemented urgently. Processes for resource planning, human resources, common services and evaluation must achieve full compatibility as major drivers of coherence in the United Nations system. There should be greater opportunities for staff mobility and a system-wide agreement on results-based management, as well as independent United Nations system-wide evaluation and common evaluation methodologies and benchmarking. The United Nations must systematically grasp opportunities for expanding joint services. Programme countries and donors should be able to see and compare the true overhead costs of delivery through the introduction and publication of consistent administration and back office costs. To promote transparency and accountability, we recommend that a United Nations common evaluation system be established by 2008, on the basis of a common evaluation methodology.

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D. HUMANITARIAN ASSISTANCE The United Nations has a unique and leading role to play in humanitarian disasters and emergencies. We recommend that this role be further enhanced by: • Stronger coordination between the United Nations, national Governments and non-governmental organizations, including the International Federation of Red Cross and Red Crescent Societies, through a ‘cluster’ approach to establish lead roles in the delivery of specific assistance, such as shelter, water, food, etc. • Fully funding the Central Emergency Response Fund to facilitate quicker, more effective flows of funds in response to disasters. • Clarifying United Nations mandates with regard to responsibility for internally displaced persons. • More investment in risk reduction, early-warning and innovative disaster assistance strategies and mechanisms. • Stronger leadership, quicker funding and better cooperation in post-conflict and post-disaster transition, with a clear lead role for UNDP once humanitarian coordination winds down. • Periodic assessment and review of the performance of United Nations agencies and non-governmental organizations involved in humanitarian assistance. E. ENVIRONMENT There is an increasingly compelling case for taking urgent action on the environment. Environmental priorities have too often been compartmentalized in isolation from economic development priorities. However, global environmental degradation — including climate change — will have far-reaching economic and social implications that affect the world’s ability to meet the Millennium Development Goals. Because the impacts are global and felt disproportionately by the poor, coordinated multilateral action to promote environmental sustainability is urgently required. We recommend that international environmental governance be strengthened and made more coherent in order to improve the effectiveness and targeted action of environmental activities in the United Nations system. We recommend that, as a basis for reforms to improve system-wide coherence, the Secretary-General commission an independent assessment of international environmental governance within the United Nations system and related reform. We recommend that the United Nations Environment Programme be upgraded and given real authority as the environmental policy pillar of the United Nations system. We further recommend that United Nations entities cooperate more effectively on a thematic basis and through partnerships, with a dedicated agency at the centre.

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As the major financial mechanism for the global environment, the Global Environment Facility should be strengthened to help developing countries build their capacity. It should have a significant increase in resources to address the challenge posed by climate change and other environmental issues. We have also made a number of recommendations to make sure that the United Nations helps countries mainstream environment in their strategies and actions, to elevate the status of sustainable development in the United Nations institutional architecture and in country activities, and to achieve the needed balance among the three pillars (economic, social and environmental) of sustainable development. F. GENDER: A KEY TO EFFECTIVE DEVELOPMENT We recommend the establishment of one dynamic United Nations entity focused on gender equality and women’s empowerment. We consider gender equality to be central to the delivery of effective development outcomes, and the Secretary-General tasked us with a specific mandate to suggest radical changes for improving performance. We therefore propose a step change in the United Nations delivery of gender equality and women’s empowerment, as follows: • The three existing United Nations entities should be consolidated into an enhanced and independent gender entity, headed by an Executive Director with the rank of Under-Secretary-General, appointed through a meritocratic competition demonstrably open to those outside the United Nations. • The gender entity would have a strengthened normative and advocacy role combined with a targeted programming role. •

The gender entity must be fully and ambitiously funded.

• Gender equality would be a component of all One United Nations country programmes. • The commitment to gender equality is and should remain the mandate of the entire United Nations system. G. COORDINATION WITH OTHER MULTILATERAL AGENCIES The United Nations and the Bretton Woods institutions were established with the intention that they would work together in a complementary way. Over time both the World Bank and United Nations institutions have gradually expanded their roles, so that there is increasing overlap and duplication in their work. A balance needs to be struck between healthy competition and inefficient overlap and unfilled gaps. The Bretton Woods institutions and the United Nations need to work more closely together to remove unnecessary duplication and build on their respective strengths. We therefore recommend, as a matter of urgency, that the Secretary-General, the President of the World Bank and the Executive Director of the International Monetary Fund set up a process to review, update and conclude formal agreements on their re-

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spective roles and relations at the global and country levels. These reviews must be periodically updated as well as assessed. This process should be undertaken on the basis of the enhanced performance, strengthened delivery and more influential role that the United Nations will have if our reforms are implemented. H. IMPLEMENTATION We have proposed a comprehensive set of recommendations that taken together could make the United Nations much more responsive to the needs of its Member States, in particular developing countries. The United Nations would become more effective, more focused and better able to deliver results. If United Nations system organizations, Member States and all stakeholders act on our recommendations, the United Nations could become a driver in development to eradicate poverty, in partnership with civil society and the private sector. A reformed United Nations would be able to capture the increases in development resources that were committed in 2005, strengthening its enabling role in development and delivering more effective global public goods for the benefit of all. The present recommendations are not a menu of options but an integrated whole. Each is individually vital to make the system greater than the sum of its parts, not smaller as has sometimes been the case. The recommendations should each be implemented with vigour and urgency and without diluting their purpose. We recognize that implementing these reforms will involve significant challenges and sometimes the sacrifice of individual interests for United Nations agencies, funds and programmes. They will need to work more closely and effectively with the rest of the United Nations system in the interests of a greater common good. Donors will also be challenged by these recommendations, which propose changing the way they fund the United Nations in line with the principles of multilateralism and national ownership at different levels. Our most important constituency are the billions who do not enjoy the prosperity and well-being that many of us take for granted and whose deprivation inspired a global call to action — the Millennium Development Goals. It is for the sake of the poor and the destitute that we need an efficient United Nations, one that is well governed and well funded and will remain a global repository of hope. We have it within our grasp to make a real and lasting difference through the essential reforms set out in these proposals. All stakeholders in the United Nations system have a responsibility to seize this opportunity. Our actions and decision on reforms will for millions around the world make the difference between hope and despair, and for some the difference between life and death.

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CHAPTER ONE

THE CASE FOR REFORM The world needs a coherent and strong multilateral framework with the United Nations at its centre to meet the challenges of development, humanitarian assistance and the environment in a globalizing world. The United Nations needs to overcome its current fragmentation and to deliver as one. It should help the world accomplish the ambitious agenda endorsed by the 2005 World Summit, the Millennium Development Goals and other internationally agreed development goals. It should enable and support countries to lead their development processes and help address global challenges such as poverty, environmental degradation, disease and conflict. 1. In facing up to the challenges of their times, the world leaders of 60 years ago created new international institutions—the United Nations, the World Bank and the International Monetary Fund (IMF)—and demonstrated by their actions that international cooperation was the only way to solve the economic and political challenges of the post-war world. The architects of these institutions built for their time and their generation not only a whole set of new rules for the international system—they gave expression to a new public purpose based on high ideals. 2. Just as they did 60 years ago, we face a changing world today. Ours is the era of globalization, of global change unprecedented in its speed, scope and scale. As the world becomes ever more interdependent, sharp social and economic inequalities persist. Some of the poorest countries and communities remain isolated from economic integration and the benefits of globalization, and are disproportionately vulnerable to crisis and social upheaval. There is greater awareness of the acceleration of environmental degradation and climate change, and its effects on agricultural productivity and food security. More conflicts are within States than between them, and the risk of terrorism and infectious disease illustrate that security threats travel across borders. 3. Poverty, environmental degradation and lagging development heighten vulnerability and instability to the detriment of all. Now, more than ever, dealing with inequality—by achieving the Millennium Development Goals and wider development objectives—is central to economic stability and global security. In the face of unacceptable poverty we have a clear moral imperative to act when we have the knowledge, ability and resources to do so. 4. We know that when the flows of goods, services, capital and people are global, the challenges that arise can be solved only through globally concerted action. Globalization makes multilateralism indispensable, and the United Nations is the heart of multilateralism. Promoting development, eradicating poverty, protecting the environment for future generations and preventing and assisting in humanitarian crises cannot be undertaken without the United Nations. Its universal values and representativeness create the political legitimacy and authority essential to the actions needed globally, regionally, nationally and locally. 5. Despite deep divides in the international community in the past, in particular during the cold war, the United Nations has been able to build a set of norms and in-

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ternationally agreed development goals that frame the efforts of most nations and institutions. The United Nations has demonstrated intellectual leadership across a range of issues. For example, the annual Human Development Report, launched in the early 1990s, played a leading role in developing the concept of sustainable development and placed the well-being and dignity of people at the heart of the development agenda. At the 2000 Millennium Summit, 191 Member States, with 147 represented at the level of Head of State and Government, endorsed the United Nations Millennium Declaration. The United Nations can bring parties together, based on the unique legitimacy of its universal membership and on its diverse roles as a standard-setter, capacity-builder and advocate. Many of today’s globally accepted norms and standards have originated from United Nations forums. 6. The United Nations has an opportunity in the unprecedented consensus reached on a common framework for the future, most recently reaffirmed by the 2005 World Summit. The framework is contained in the internationally agreed development goals of recent global conferences, ranging from social development to the empowerment of women, but is most compellingly outlined in the Millennium Development Goals. Never before have rich and poor countries alike formally embraced such concrete commitments. Never before have the United Nations, the World Bank, IMF and all parts of the international system come together behind the same set of development commitments and stood ready to be held accountable for them. 7. The United Nations has a key role in ensuring progress towards the Millennium Development Goals and other internationally agreed development goals. But it must reform to do so. Through the Secretary-General’s High-level Panel on Systemwide Coherence in the areas of development, humanitarian assistance and the environment, the international community has a unique opportunity to ensure that the United Nations can respond to the global challenges of the twenty-first century and play a full and effective role in the multilateral system. 8. The Monterrey Consensus of 2002 established a partnership for development, with donors making more official development assistance (ODA) and debt relief available within a context of continuing reform in developing countries, which was further elaborated in the Paris Declaration on Aid Effectiveness. In 2005 donors made further commitments to increase ODA by USD 50 billion by 2010 and to provide USD 55 billion in debt relief. A more effective and efficient United Nations should be an important partner in ensuring that those resources deliver results and accelerate progress towards the Millennium Development Goals. 9. These commitments go hand in hand with the Panel’s recognition that the primary responsibility for action lies with each Member State. Country ownership of development plans and donor commitment to principles of aid effectiveness and good donorship have to underpin the work of the United Nations. Decades of piecemeal and failed development efforts demonstrate that assistance policies cannot be imposed — they must be owned not only by Governments but by their people and communities. While this concept is broadly accepted, it must now be put into practice. 10. We know that the United Nations has been seen by some to fail in delivering some of the vision and mission we expect from it. There are many reasons why the United Nations has become fragmented and weak: from a lack of buy-in and mixed messages from Member States between capitals and representatives in various bodies,

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to a proliferation of agencies, mandates and offices, creating duplication and dulling the focus on outcomes, with moribund entities never discontinued. Even when mandates intersect, United Nations entities tend to operate alone with little synergy and coordination between them. The United Nations system now encompasses 17 specialized agencies and related organizations, 14 funds and programmes, 17 departments and offices of the United Nations Secretariat, 5 regional commissions, 5 research and training institutes and a plethora of regional and country-level structures. The loss of cohesion prevents the United Nations from being more than the sum of its parts. • At the country level, operational incoherence between United Nations funds, programmes and agencies is most evident. More than one third of United Nations country teams include 10 or more United Nations agencies on the ground at any one time. Several teams include 20 or more. This has led to incoherent programme interventions and excessive administrative costs. It also burdens the capacity of developing countries to deal with multiple agencies. Of 60 countries analysed by the Panel, 17 country teams had an annual budget of less than USD 2 million per agency. Nor does the normative and analytical expertise of non-resident agencies sufficiently support United Nations country team efforts. Without authoritative leadership by the United Nations resident coordinator, and system-wide ownership of the resident coordinator system, incentives for better coordination remain limited. • Signs of fragmentation are also apparent at the regional level. Regional offices of different United Nations agencies are scattered in different locations, and definitions of regions can differ from one agency to another. In some regions strong regional and subregional institutions either exist or are rapidly evolving while others have strayed from their original mandates. This calls for a review of the United Nations regional roles and settings, including the regional commissions, to address regional needs, avoid duplication and overlapping functions and seek a coherent regional institutional landscape. • More synergy is also needed at the global level. In some sectors, such as water and energy, more than 20 United Nations agencies are active and compete for limited resources without a clear collaborative framework. More than 30 United Nations agencies and programmes have a stake in environmental management. On specific issues, such as internally displaced people, several agencies have a legitimate interest, but none has a clear lead. Merging United Nations agencies does not always lead to better outcomes. But we believe there must be a significant streamlining of United Nations agencies so that the United Nations can ‘deliver as one’, reduce duplication and significantly reduce the burdens it currently places on recipient and donor Governments, without diluting the performance and expertise of individual organizations. • Inadequate and unpredictable funding of the system also contributes to fragmentation, undermining the multilateral character of the United Nations. The exponential growth of extrabudgetary (non-core) versus core resources has encouraged supplydriven rather than demand-driven approaches to assistance, undermining the principle of country ownership. Lack of donor coordination and competition for non-core resources among United Nations agencies squander significant time and effort on fundraising, undermining the ability of the United Nations to make long-term strategic de-

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cisions that would deliver more effective results. Nor does the United Nations have a common system for its overall development funding or for measuring results transparently and systematically. 11. The international community has a duty to ensure that the United Nations is fit for purpose, reinvigorated and strengthened to meet the global challenges and diverse needs of an ever more interdependent world. To do this, the United Nations must be coherent and flexible enough to respond to demands for a variety of policy and operational services. A one-size-fits-all approach would be inappropriate. 12. As stakeholders in the United Nations system, we have a responsibility to agree on and present ambitious recommendations to improve the coherence of the United Nations so that it delivers as one in the areas of development, humanitarian assistance and the environment. The most radical decision we could take is to maintain the status quo. It would represent a victory for inertia and parochial, short-term institutional and national interests to maintain a system that has grown over time, and which no one facing the challenges we do today would design as it is. The Panel believes that reform to improve the coherence of the United Nations system must be underpinned by clear principles: • National ownership and people-centred approaches. National sovereignty and national ownership of development plans must remain the bedrock of effective development. The system must be realigned to a demand-driven approach and to programmes delivered as close to beneficiaries as possible. • Core comparative advantage. The United Nations needs to be flexible enough to respond to the operational and policy needs of all countries and to advocate global standards and norms. In each country it should focus on where it is best able to provide leadership — and withdraw from areas where it does not — to deliver results in response to country programme needs. The added value of the system lies in harnessing the full array of capabilities under its umbrella in an integrated way, not in seeking out narrow niches. • Maximum effectiveness and accountability. Change must prepare the United Nations to address new challenges and to improve its performance measured by outcomes. Responsibility and authority must be clarified, and staff given the means to deliver on their mandates and be held accountable for them. Efficiency gains must be pursued through better business practices. 13. We must ensure that the United Nations is reformed and strengthened to deliver more effectively on its mandate to empower the vulnerable and the excluded. A United Nations able to respond flexibly can help to provide prosperity and justice for all. Our report is the starting point of a process to develop a commonly owned vision among all stakeholders for a coherent and effective United Nations system. It will require leadership by the Secretary-General, as well as sustained commitment and effort on the part of Member States and United Nations agencies. We are convinced that the implementation of this bold but realistic programme of recommendations will help to ensure that the United Nations development system remains fit to rise to the challenges of the twenty-first century.

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CHAPTER TWO

DEVELOPMENT, HUMANITARIAN ASSISTANCE AND THE ENVIRONMENT A. DEVELOPMENT: DELIVERING AS ONE AT THE COUNTRY LEVEL To bring about real progress towards the Millennium Development Goals and other internationally agreed development goals, we believe that the United Nations system needs to deliver as one at the country level. To focus on outcomes and improve its effectiveness, the United Nations should accelerate and deepen reforms to establish unified United Nations country teams—with one leader, one programme, one budgetary framework and, where appropriate, one office (see box 1). To deliver as one, United Nations country teams should also have an integrated capacity to provide a coherent approach to cross-cutting issues, including sustainable development, gender equality and human rights. Recommendation: The United Nations should deliver as one by establishing, by 2007, five One Country Programmes as pilots. Subject to continuous positive assessment, demonstrated effectiveness and proven results, these should be expanded to 20 One Country Programmes by 2009, 40 by 2010 and all other appropriate country programmes by 2012. 14. The Panel has been guided in its work by assessing whether the current structure and functioning of the United Nations system are fit for the development challenges of today and tomorrow. We have focused on the United Nations development activities at the country level, but we recognize that the role of the United Nations in development goes beyond its direct support to countries. The United Nations has a central role in promoting global policies that improve the development prospects of countries, and countries are increasingly turning to the United Nations for advice to address the challenges of globalization and other cross-border issues. Most important, the United Nations has provided Member States with a forum to reach consensus on internationally agreed development goals. These goals respond to the needs and aspirations of people, communities and countries everywhere and provide a framework for a comprehensive approach to development. 15. The success of these global commitments—from fighting hunger and poverty, to upholding core labour standards, to containing the global HIV/AIDS pandemic— can be measured only by their translation into concrete results for countries and communities. Development objectives can be achieved only if countries define, own and drive their development processes at all levels. Country-led development frameworks, such as poverty reduction strategies, are seen as the main vehicle to achieve the internationally agreed development goals. They serve as a platform for aligning all partners’ contributions to national development priorities and provide an inclusive forum for policy dialogue. We believe that the United Nations needs to be a more active player in this context—as an adviser to Governments, as a convener of stakeholders, as an advocate for international norms and standards and as a source of technical assistance and advice on how to build and strengthen institutions.

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Box 1. One United Nations at the country level—key features One programme • Country owned and signed off by Government, responsive to the national development framework, strategy and vision, including the internationally agreed development goals. • Building on the United Nations country team’s common country assessment or national analysis and reflecting the United Nations added value in the country context. • Strategic, focused and results-based, with clear outcomes and priorities, while leaving flexibility to reallocate resources to changes in priorities. • Drawing on all United Nations services and expertise, including those of nonresident agencies, in order to effectively deliver a multisectoral approach to development (with due attention to cross-cutting issues). One leader • Resident coordinator authority to negotiate the One Country Programme with the Government on behalf of the entire United Nations system and to shape the One Country Programme (including the authority to allocate resources from pooled and central funding mechanisms). • Clear accountability framework for resident coordinators and an effective oversight mechanism for the resident coordinator system. • Resident coordinator authority to hold members of the team accountable to agreed outcomes and for compliance with the strategic plan. The resident coordinator should also be accountable to the members of the United Nations country team. • Strengthened resident coordinator capacity with adequate staff support to manage United Nations country team processes and ensure effective dialogue and communication with partners. • Competitive selection of resident coordinator candidates, drawn from the best talent within and outside the United Nations system. One budgetary framework • Transparency, management, and the effective implementation of the One Country Programme through one budgetary framework. • Funding should be linked to the performance of the United Nations country team preparing and implementing a strategic One Country Programme. • The budget should be completely transparent, showing clearly the overheads and transaction costs of the United Nations and all of its funds, programmes and specialized agencies in the country. One office • vices.

One integrated results-based management system, with integrated support ser-

•

Joint premises (where appropriate).

•

A common security infrastructure and clear lines of accountability.

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16. At the country level, the United Nations often struggles to fulfil such strategic roles, working with systems and approaches (from programming to funding to reporting) that are fragmented, piecemeal and not designed for this purpose. More than a third of the United Nations country teams include more than 10 United Nations entities, some more than 20. The cost of doing business with the United Nations is thus too high for both recipient countries and donors. Today there are many other actors active in development, such as NGOs, foundations and the private sector, and the country presence of bilateral donors is growing. In this new development landscape— with many players providing multifaceted contributions to development—the United Nations needs to reposition itself to deploy its normative and policy capacity more effectively. 17. The current design of the United Nations system risks perpetuating a myriad of niche players, which individually will not have the influence and authority to secure a strong voice in national and global debates. We have heard in our consultations that unifying the United Nations at country level would compromise the characteristics and dynamism of individual agencies. But failing to strategically position the United Nations in its entirety risks marginalizing the whole system in the long term. 18. Recent changes to the resident coordinator system have somewhat improved the way the United Nations operates in countries, but resident coordinators are not equipped with the authority to provide effective leadership to all the United Nations entities operating in the country. Too often, ‘reform’ has meant adding extra layers of bureaucracy, outweighing potential benefits. And successful reform has depended too heavily on the commitment of individuals rather than on institutional capacity, needed to ensure that a good practice becomes the best global practice. Greater ownership and accountability of the resident coordinator system to all organizations of the United Nations needs to be secured. Recommendation: United Nations resident coordinators should have the authority to lead the One Country Programme. To perform this function, resident coordinators should have appropriate competencies, capabilities and support capacities. Their enhanced authority should be matched by a clear accountability framework and an effective oversight mechanism to ensure system-wide ownership of the resident coordinator system. 19. To effectively implement the ‘One United Nations’ at the country level, significant changes would be needed in the governance and funding of the United Nations development activities (recommendations in this regard are made in chap. III below). The role of the United Nations Development Programme (UNDP) in managing the resident coordinator system would also have to evolve significantly to engender ownership among other United Nations agencies, and eliminate duplication of programmatic activities. Recommendation: UNDP will consolidate and focus its operational work on strengthening the coherence and positioning of the United Nations country team delivering the One Country Programme. As manager of the resident coordinator system, UNDP should set a clear target by 2008 to withdraw from sector-focused policy and capacity work for which other United Nations entities have competencies. UNDP program-

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matic work should be limited to interventions that strengthen the coherence and overall positioning of the United Nations country team: • Promoting and supporting the United Nations work to help countries achieve the Millennium Development Goals and other internationally agreed development goals and poverty reduction through supporting governments in integrating the Millennium Development Goals into their national development strategies, assessing needs and monitoring results. •

Leading the United Nations support to governance.

• Leading and coordinating the United Nations work in crisis prevention, postconflict, post-disaster and early recovery (see chap. II.B). In addition, UNDP would continue its support to mainstreaming environmental issues into national development strategies at the country level, in cooperation with the United Nations Environment Programme (UNEP) and other relevant United Nations organizations (see chap. II.D). Recommendation: To ensure that there is no potential for, or perception of, a conflict of interest, UNDP should establish an institutional firewall between the management of its programmatic role and management of the resident coordinator system (including system-wide strategic and policy support). This separation of functions will also ensure that all parts of the United Nations system have a greater stake in the ownership of the resident coordinator system. UNDP will develop a code of conduct, including a transparent mechanism to evaluate the performance of its country operations. This should be done in consultation with all relevant United Nations organizations and the agreed code of conduct should be formally approved by the Sustainable Development Board (see chap. III). The redesign of the UNDP organizational structure should include a clear separation of responsibilities, senior managers and budgets between UNDP management of the resident coordinator system and its programmatic activities. Milestone: By the end of 2007 UNDP will have finalized a code of conduct and by the end of 2008 it will have implemented the firewall and restructuring. B. HUMANITARIAN ASSISTANCE AND THE TRANSITION FROM RELIEF TO DEVELOPMENT: STRENGTHENING THE CAPACITY TO RESPOND Humanitarian response should be improved through a closer partnership between the United Nations, Governments and NGOs, making full use of the coordination role of the United Nations. The Central Emergency Response Fund must be fully funded from additional resources. There should be clear responsibilities within the United Nations system for addressing the needs of internally displaced persons. Development should be an integral part of any peace process. There should be clear leadership by UNDP on early recovery from conflict and natural disasters, as well as flexible United Nations funding. National development strategies and donors should invest more in risk reduction and early warning, building on existing international initiatives. The private sector and communities should be included in formulating strategies.

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1. Humanitarian assistance 20. Since the appointment of the Emergency Relief Coordinator in 1991 and the establishment of the Office for the Coordination of Humanitarian Affairs in 1997, the United Nations emergency response capacity has become stronger. Operational agencies — such as the World Food Programme (WFP), the Office of the United Nations High Commissioner for Refugees (UNHCR) and the United Nations Children’s Fund (UNICEF) — continue to respond well in humanitarian relief, based on established principles of humanity, impartiality and neutrality. Mechanisms for inter-agency coordination, such as the Inter-Agency Standing Committee and the Executive Committee for Humanitarian Affairs, have enhanced coordination between the humanitarian organizations of the United Nations and with non-United Nations partners. For 2006 United Nations humanitarian appeals amount to USD 4.7 billion, for some 31 million beneficiaries in 26 countries. Significant challenges remain, however, in both coordination and funding. 21. To build strong United Nations leadership at the field level and support country ownership and cooperation, efforts to strengthen the humanitarian coordinator need to be intensified. The cluster lead agency system, adopted by the United Nations system in 2005, helped identify organizational leaders in different areas of humanitarian response, but the experience of its first year of implementation indicates that it should need to broaden to include national partners, NGOs and the Red Cross movement. 22. As a result of the increase in intrastate conflict, there are more than 25 million internally displaced persons, compared with 10 million refugees. The humanitarian system must evolve further to address this growing problem. A clear allocation of responsibility within the United Nations system is needed. UNHCR must reposition itself to provide protection and assistance for displaced people in need, regardless of whether they have crossed an international border. 23. Humanitarian funding remains crucial in influencing the United Nations response capacity, and there has been progress in developing a more coherent approach. But the consolidated appeals process, with all United Nations agencies and some nonUnited Nations agencies participating, still suffers from unpredictability and underfunding. And three years after the adoption of the good humanitarian donorship principles, the predictability of assistance has not yet improved substantially. The recently established Central Emergency Response Fund has facilitated faster, more effective responses, but current funding (USD 262 million) is only halfway to the funding target. 24. Steps towards greater coherence must include efforts to increase United Nations accountability through more effective communication with affected populations and donors. Better information flows are crucial for the United Nations to be even more effective in emergency situations. Transparent, periodic and independent assessments of the global response to humanitarian emergencies can help identify gaps in coherence and failures of coordination. The Panel therefore recommends that the United Nations take the lead in preparing a regular and independent assessment of the performance of the United Nations and the wider humanitarian system in responding to humanitarian emergencies.

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Recommendation: To avoid a fragmented approach to humanitarian assistance, there should be stronger partnership arrangements between the United Nations, national Governments, the International Federation of Red Cross and Red Crescent Societies and NGOs, based on the coordination and leadership roles of the Emergency Relief Coordinator at the global level and the humanitarian coordinator at the country level. These arrangements should support and ensure effective and inclusive participation in the cluster lead agency approach. Procedures, including the definition of ‘provider of last resort’ and how this relates to the position of cluster leader, need to be clarified. Recommendation: The Central Emergency Response Fund should be fully funded to its three-year target of USD 500 million from additional resources. A substantial increase should be considered over the coming five years, following a review of its performance. Donors must implement the agreed principles of good humanitarian donorship and provide adequate resources based on needs assessments, particularly to crisis situations now under-funded. They should ensure that their pledges are honoured promptly. The Consolidated Appeals Process should set clearer priorities, based on joint assessments, coordination and action. Recommendation: The humanitarian agencies should clarify their mandates and enhance their cooperation on internally displaced persons. In particular, the role of UNHCR should be reviewed, to establish a clear mandate and to further strengthen the effectiveness of the United Nations approach to addressing the needs of internally displaced persons. 2. Transition from relief to development 25. For countries emerging from conflict, the immediate international response is dominated by political mediation and reconciliation. The current United Nations approach tacitly emphasizes immediate stability over sustainable peace. Symptoms of conflict are often addressed, while root causes are often not addressed. For countries recovering from natural disaster, and in supporting nationally owned strategies, it is imperative to integrate vulnerability and risk reduction into all phases of recovery and development planning. In July 2006, the Tsunami Evaluation Coalition stated that successful post-disaster reconstruction required an understanding of ongoing political, economic and social processes that enable and constrain affected populations as they rebuild their lives. A clear lead capacity on the development aspects of the postdisaster recovery process, charged with early coordination and planning, should be established at United Nations Headquarters within UNDP. 26. Since the 2000 Brahimi report on peacekeeping operations, integrated United Nations peacekeeping and peacebuilding missions have improved coordination by bringing the development arm of the United Nations under the direct leadership of the Special Representative of the Secretary-General. Better development strategies for post-conflict peacebuilding are needed to guide such missions. The Peacebuilding Commission should be the forum that encourages the development of peacebuilding strategies on the ground. 27. Unlike peacekeeping operations, which are funded by assessed contributions, humanitarian and development activities depend on unpredictable voluntary pledging

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conferences. The management of funds in support of development in conflict countries has increasingly been placed in the hands of the World Bank, often disbursed only when Government structures are firmly in place. In many countries the donors have sought flexibility and directly transferred funds to UNDP trust funds, especially when Government capacity is not strong. Cooperation between the United Nations and the World Bank requires a clearer division of labour based on realities on the ground. Efforts should be made to strengthen response with more flexible United Nations interim funding mechanisms that could address transition issues faster and more effectively. Recommendation: The repositioned UNDP should become the United Nations leader and coordinator for early recovery. While building standing and surge capacity to take the lead role when humanitarian coordination winds down, UNDP should work closely with the World Bank and other development and humanitarian agencies, using the sectoral programming capacity of other relevant United Nations agencies. All early recovery activities should conform to national priorities, with national authorities managing the recovery process as soon as they have the capacity to do so. Recommendation: Adequate funding for the United Nations role in early recovery should be ensured, even before a donor conference is held or a United Nations/World Bank Multi-Donor Trust Fund is operational. If the Peacebuilding Fund or the UNDP Thematic Trust Fund for Crisis Prevention and Recovery is not able to provide resources immediately, a country-specific fund for early recovery can be set up, linked to these overall funding mechanisms. The initial funding target of the Peacebuilding Fund of USD 250 million should be met by 2007. Recommendation: To build long-term food security and break the cycle of recurring famines, especially in sub-Saharan Africa, WFP, the Food and Agriculture Organization of the United Nations (FAO) and the International Fund for Agricultural Development should review their respective approaches and enhance inter-agency coordination. Complementary strategies should be further developed to strengthen local capacity and resilience to mitigate and cope with consequences of famines. 3. Reducing risk 28. In the first eight months of 2006, 91 million people had their lives devastated by natural disasters. Reducing the risk of disaster must be linked to humanitarian, development and environmental approaches. With more than 75 per cent of the world’s people living in disaster-prone areas, risk reduction has been recognized as a costeffective strategy to protecting livelihoods and achieving the internationally agreed development goals. The Hyogo Framework for Action (2005-2015), agreed to by Governments in 2005 as the international framework for disaster reduction, has created an agenda, taking into account the need for a strong sense of ownership, including collaboration with civil society and the private sector, and ensuring the awareness and capacity of local governments and communities. The International Strategy for Disaster Reduction and the new World Bank-hosted Global Facility for Disaster Reduction and Recovery are making progress on this, but more coherent action is required.

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29. There is insufficient ‘disaster-proofing of the Millennium Development Goals,’ through mainstreaming risk reduction in development strategies. The Tsunami Evaluation Coalition revealed that, despite advances in early warning systems, the Tsunami response had failed to enhance local preparedness or reduce long-term vulnerability. Further investment at country and community levels is required, and the responsibilities and capacities of the United Nations system have to be further specified and enhanced. Recommendation: The United Nations efforts on risk reduction should be urgently enhanced, through full implementation and funding of international agreements and other recent initiatives and the involvement of communities. National development strategies should address risk reduction explicitly and should be the basis on which donors plan their contributions to risk reduction and how they report these contributions as part of international and national risk reduction targets. UNDP should take the lead on this issue in the United Nations, particularly at the country level. In addition, the Office for the Coordination of Humanitarian Affairs, UNDP, UNEP, the World Meteorological Organization (WMO), and WFP with the International Strategy for Disaster Reduction secretariat should build a joint programme for early warning, drawing on existing capacities of funds, programmes and specialized agencies. Recommendation: The United Nations should continue to build innovative disaster assistance mechanisms, such as private risk insurance markets, as means to provide contingency funding for natural disasters and other emergencies. Consideration should be given to efforts such as the WFP pilot humanitarian insurance policy in Ethiopia to provide coverage in the case of an extreme drought during the country’s 2006 agricultural season. The Emergency Relief Coordinator should work with United Nations country teams and agencies on designing such event-specific contingency funding to reduce the reliance on the Central Emergency Response Fund. C. ENVIRONMENT: BUILDING A GLOBAL CONSENSUS AND CAPACITY FOR ACTION Deteriorating environmental trends have far-reaching economic, social and health implications and affect the world’s ability to meet the Millennium Development Goals. Substantial gains in efficiency and effective responses can be made through enhanced coordination and improved normative and operational capacity, in particular through the integration of environment into national development strategies and United Nations system country operations. To improve effectiveness and targeted action of environmental activities, the system of international environmental governance should be strengthened and more coherent, featuring an upgraded UNEP with real authority as the United Nations environment policy pillar. Synergy needs to be pursued between the United Nations organizations that address environment, and multilateral environmental agreements should continue to pursue efficiencies and coordination among themselves. An independent assessment of the current United Nations system of international environmental governance is required to support ongoing efforts at reform. 30. There can be no long-term development without environmental care. In a global and interdependent world economic objectives and environmental objectives

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increasingly reinforce each other. Environmental priorities—including climate change—have too often been compartmentalized and separated from economic development priorities. However, because the impacts are global and felt disproportionately by the poor, environmental sustainability is not an option—it is an imperative. The Panel is united in its conviction that addressing worsening trends of environmental degradation is one of the greatest collective challenges for economic development and human welfare. 31. We possess fairly comprehensive knowledge and understanding of what we individually and collectively need to do to reverse these trends—all spelled out in reports, declarations, treaties and summits since the early 1970s. While we have made significant advances within the United Nations framework, what is needed now is a substantially strengthened and streamlined international environmental governance structure, to support the incentives for change required at all levels. 32. The Panel recognizes that relatively little headway has been made in integrating the environment in development strategies at the country level, or in implementing internationally agreed goals. Environmental issues and goals must now be better integrated within United Nations system country operations, as critical components of national poverty reduction strategies and sustainable development plans. Bearing in mind that environmental sustainability is the foundation for achieving all the other Millennium Development Goals, there must be a strengthening of human, technical and financial capacities in developing countries to mainstream environmental issues in national decision-making, particularly through the resident coordinator. 33. The increase in the incidence and severity of natural disasters with environmental causes demonstrates the need to strengthen the links between environmental and humanitarian activities and between environmental and development activities. The United Nations system needs to incorporate more knowledge in its work on preparedness and risk reduction for natural disasters and for post-disaster recovery and reconstruction. 34. The United Nations institutions for the environment must be optimally organized and tooled, drawing on expertise in different parts of the United Nations system. Unless the United Nations adopts more comprehensive approaches, it will continue to fall short of its goals. The Panel is cognizant of the ongoing General Assembly informal consultative process on international environmental governance and has interacted with the process. Our recommendations should give it greater impetus. 35. Fragmented institutional structures do not offer an operational framework to address global issues, including water and energy. Water is an essential element in the lives of people and societies, and the lack of access to water for basic needs inflicts hardship on more than 1 billion people. Similarly, energy is a main driver of development, but current systems of energy supply and use are not sustainable (more than 2 billion people in developing countries do not have access to modern energy services). More than 20 United Nations organizations are engaged at some level in water and energy work, but there is little evidence of overall impact. 36. The inadequacy of the current system is the result of having outgrown its original design. Developing countries are unable to cope with the extensive reporting and participation requirements of the current multilateral environmental structure, which has depleted expertise and resources for implementation. A survey by the Panel

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revealed that the three Rio Conventions (biodiversity, climate and desertification) have up to 230 meeting days annually. Add the figures for seven other major global environmental agreements (not including regional agreements) and that number rises to almost 400 days. 37. As environmental issues have become more clearly defined and interlinked, they have come to influence the work of practically every United Nations organization, all competing for the same limited resources. The institutional complexity is further complicated by the substantial environment portfolios of the World Bank and regional development banks, which are not well coordinated with the rest of the United Nations system. In addition, UNEP, the principal environment organization of the United Nations—with its normative, scientific, analytical and coordinating mandate— is considered weak, under-funded and ineffective in its core functions. 38. Climate change, desertification, ecosystem decline, and dispersion of hazardous chemical substances have the potential to affect every part of the globe and require clear and forceful responses by the United Nations system. Cooperation should be close among UNEP, UNDP, WMO, the Global Environment Facility (GEF) and the World Bank for building scientific and technical capacity, managing investment and infrastructure components, supporting adaptation measures and facilitating an effective integration of global environmental concerns into the development policy frameworks at the country level. GEF, the specialized funding instrument to help developing countries undertake projects and programmes that protect the global environment, has been replenished in 2006—but will require a significant increase in resources to address future challenges. Its policy requirements and operational procedures need to be made much more simple and compatible with the development framework at the country level. 39. It is the judgement of the Panel that the international community must transcend differences and move forward. Economic growth, social justice and environmental care, advance best when they advance together. It is in our shared interest to have institutions that enable us to respond collectively to the threats of environmental degradation that challenge us all. To deliver on the internationally agreed goals and commitments, the United Nations will require stronger leadership and greater capacity for environmental activities. In this regard, cooperation and partnerships with civil society organizations, including the private sector, are essential. Recommendation: International environmental governance should be strengthened and more coherent in order to improve effectiveness and targeted action of environmental activities in the United Nations system. It should be strengthened by upgrading UNEP with a renewed mandate and improved funding. Recommendation: An upgraded UNEP should have real authority as the environment policy pillar of the United Nations system, backed by normative and analytical capacity and with broad responsibility to review progress towards improving the global environment. UNEP should provide substantive leadership and guidance on environmental issues. • The technical and scientific capacity of UNEP should be strengthened as the environmental early-warning mechanism of the international community and for monitoring, assessing and reporting on the state of the global environment. This can be

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achieved through a system of networking and drawing on the work of existing bodies, including academic institutions and centres of excellence and the scientific competence of relevant specialized agencies and scientific subsidiary bodies of multilateral environmental agreements. • Capacity should be built to promote the implementation of international commitments. The Bali Strategic Plan for Technology Support and Capacity-building should be strategically implemented to provide cutting-edge expertise and knowledge resources for the sustained expansion of capacity at the country level. Where necessary, UNEP should participate in United Nations country teams through the resident coordinator system, as part of One United Nations at the country level. • UNEP should take the lead in assisting countries in the two-step process of quantifying environmental costs and benefits and incorporating them into mainstream policymaking, in cooperation with UNDP and the Department of Economic and Social Affairs of the Secretariat. Recommendation: United Nations agencies, programmes and funds with responsibilities in the area of the environment should cooperate more effectively on a thematic basis and through partnerships with a dedicated agency at the centre (such as air and water pollution, forests, water scarcity, access to energy and renewable energy). This would be based on a combined effort towards agreed common activities and policy objectives to eliminate duplication and focus on results. • Greater coordination at Headquarters should promote coherence at the country level, and greater coordination efforts at the country level should promote coherence at the international level. There is a need to strengthen UNEP coordination of systemwide environmental policies in order to improve cohesion and consistency. In this regard, the Environmental Management Group should be given a clearer mandate and be better utilized. It should be linked with the broader framework of sustainable development coordination. Recommendation: Efficiencies and substantive coordination should be pursued by diverse treaty bodies to support effective implementation of major multilateral environmental agreements. Such coordination is being pursued by the Basel, Rotterdam and Stockholm convention secretariats (pending decisions of their respective conferences of the parties). • Stronger efforts should be made to reduce costs and reporting burdens and to streamline implementation. National reporting requirements for related multilateral environmental agreements should be consolidated into one comprehensive annual report, to ease the burden on countries and improve coherence. • Countries should consider integrating implementation needs of multilateral environmental agreements into their national sustainable development strategies, as part of the One Country Programme. • Governing bodies of multilateral environmental agreements should promote administrative efficiencies, reducing the frequency and duration of meetings, moving to joint administrative functions, convening back-to-back or joint meetings of bureaux

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of related conventions, rationalizing knowledge management and developing a consistent methodological approach to enable measurement of enforcement and compliance. Recommendation: GEF should be strengthened as the major financial mechanism for the global environment. Its contribution in assisting developing countries in implementing the conventions and in building their capacities should be clarified, in conjunction with its implementing and executing agencies. A significant increase in resources will be required to address future challenges effectively. Recommendation: The Secretary-General should commission an independent and authoritative assessment of the current United Nations system of international environmental governance. To be completed as soon as possible and taking previous work into account, the assessment would review global needs as well as the specific roles and mandates of UNEP and other United Nations agencies and multilateral environmental agreements. It would provide the basis for further reforms towards improving system-wide coherence, effectiveness and targeted action. It should be complementary to the General Assembly informal consultative process on the institutional framework for the United Nations environmental activities, which should continue its work and provide guidance on the subject. The assessment should include an analysis of proposals to upgrade UNEP from among a range of organizational models. D. CROSS-CUTTING ISSUES: SUSTAINABLE DEVELOPMENT, GENDER EQUALITY AND HUMAN RIGHTS 40. In promoting sustainable development, gender equality and human rights, the United Nations has strong mandates and Member States have committed themselves to achieving ambitious goals. The Panel recommends that cross-cutting issues must be an integral part of United Nations activities, particularly when delivering as One United Nations at the country level. 1. Sustainable development The status of sustainable development should be elevated within the United Nations institutional architecture and in country activities. The United Nations system must strive for greater integration, efficiency and coordination of the economic, social and environmental dimensions of sustainable development. At the operational level, the Panel supports a strong partnership between UNEP (normative) and UNDP (operational) and a sharper focus on environment by the resident coordinator system as part of the One United Nations at the country level. The Panel calls for the Economic and Social Council to establish a sustainable development segment — and for continuing reform of the Commission on Sustainable Development that truly leads to integrated decision-making on economic, social and environmental issues. 41. The visionary blueprint for sustainable development, outlined in Agenda 21 and adopted at the 1992 United Nations Conference on Environment and Development, is under way but has yet to be realized. Even though the General Assembly adopted sustainable development as part of the overarching framework of United Na-

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tions activities, the international community is still falling short in implementation and needs to improve the institutional framework for sustainable development. 42. This was clearly acknowledged by world leaders in 2002 at the World Summit on Sustainable Development. They stressed the need for greater integration, efficiency and coordination of the economic, social and environmental dimensions of sustainable development. Governments also agreed that strengthening the international institutional framework for sustainable development is evolutionary. The international community needs to keep relevant arrangements under constant review, identifying gaps and eliminating duplication. 43. Member States and international institutions continue to treat poverty, human health and environmental degradation as standalone threats. The United Nations system should assist countries in their integration, tackling the challenges of sustainable development across different sectors and issues. 44. The Commission on Sustainable Development was envisaged as a high-level forum that would bring economic and environmental decision makers together and provide an opportunity for frank dialogue, deliberation and problem-solving. The Panel believes that the Commission has proved successful as a model for incorporating stakeholders and as a forum to interact and exchange ideas. It has been far less effective in ensuring that the promise of integrating environment and development is fulfilled. The Commission’s mandate has been broadened considerably to include sectoral assessments of natural resources. Focusing on environmental issues alone, the Commission has contributed to overlaps and often unclear divisions of labour. 45. The Panel’s recommendations for development, humanitarian assistance, environment and gender equality and human rights should be viewed in the context of sustainable development. The recommendations here deal more with elevating the status of sustainable development in the United Nations institutional architecture and in country activities — and with achieving the needed balance among the three pillars (economic, social and environmental) of sustainable development. Recommendation: A stronger partnership between UNEP (normative) and UNDP (operational) should build on their complementarities. They should: • Integrate environment in country-owned development strategies through the resident coordinator system. •

Strengthen the analytical and technical capacities of national institutions.

•

Work with countries in implementing multilateral environmental agreements.

• Contribute the environmental perspective in disaster preparedness and postdisaster recovery and reconstruction. • Implement the strategic approach agreed to in the Bali Strategic Plan for Technology Support and Capacity-building. This requires environmental expertise from UNEP in United Nations country teams. Recommendation: Sustainable development should be mainstreamed into the work of the Economic and Social Council. This would be done through substantive consideration of reports emanating from subsidiary bodies, the Governing Council/Global Min-

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isterial Environment Forum of UNEP and other relevant intergovernmental bodies, including the Sustainable Development Board (see chap. III.A). • A ‘sustainable development’ segment should be instituted in the Economic and Social Council. It would: (a) help promote a balance between the three pillars of sustainable development; (b) focus on sustainability issues arising from the Council’s functional commissions and feed conclusions back to those commissions; and (c) coordinate recommendations to United Nations system organizations and their governing bodies. • The reform of the Commission on Sustainable Development following the 2002 World Summit on Sustainable Development should be pursued further by focusing on implementation, including approaches for integrating environmental and social concerns into economic planning, and for identifying and sharing best practices. 2. Gender equality and women’s empowerment Gender equality is central to sustainable development that responds to the needs, rights, aspirations and talents of half the world’s people. The Panel believes that the United Nations needs to replace several current weak structures with a dynamic United Nations entity focused on gender equality and women’s empowerment. This entity should mobilize forces of change at the global level and inspire enhanced results at the country level. The promotion of gender equality must remain the mandate of all United Nations entities. 46. Within the United Nations framework the international community has made strong commitments over the past six decades to gender equality and women’s empowerment. It has entrusted the United Nations with an enormously important mandate in this area. The Secretary-General called upon us to include in our work an assessment of how gender equality could be better and more fully addressed by the United Nations, in particular—where it matters most—in the Organization’s operational activities on the ground. 47. We have listened carefully to Governments in programme and donor countries, to civil society representatives and to United Nations staff at Headquarters and at regional and country offices. The message is clear: while the United Nations remains a key actor in supporting countries to achieve gender equality and women’s empowerment, there is a strong sense that the United Nations system’s contribution has been incoherent, under-resourced and fragmented. 48. We believe that the importance of achieving gender equality cannot be overstated. For both reasons of human rights and development effectiveness, the United Nations needs to pursue these objectives far more vigorously. While there are inspiring examples of United Nations initiatives that have helped to change women’s lives, these have unfortunately remained isolated ‘best practices.’ 49. We propose a new way forward based on fundamentals that we believe need to constitute the guiding principles of any efforts to strengthen United Nations performance on gender equality and women’s empowerment:

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• The United Nations needs a much stronger voice on women’s issues to ensure that gender equality and women’s empowerment are taken seriously throughout the United Nations system and to ensure that the United Nations works more effectively with Governments and civil society in this mission. We believe that a gender entity — based on the principles of coherence and consolidation—is required to advance this key United Nations agenda. Box 2. Mandate and structure of the consolidated gender entity Governance The gender entity would consolidate three of the United Nations existing entities under two organizational divisions. The ‘normative, analytical and monitoring’ division would subsume the Office of the Special Adviser on Gender Issues and the Advancement of Women and the Division for the Advancement of Women. The ‘policy advisory and programming’ division would subsume the current activities of the United Nations Development Fund for Women (UNIFEM). The Office of Human Resources Management of the Secretariat would take over the human resource functions, currently performed by the Office of the Special Adviser, aimed at improving the status of women in the Secretariat and the United Nations system. The Executive Director of the consolidated entity should have the rank of UnderSecretary-General, consistent with that of other heads of agency, to guarantee organizational stature and influence in United Nations system-wide decision-making. The position should be recruited through a meritocratic competition demonstrably open to those outside the United Nations and an open and transparent global search process. The Executive Director would act as the chief adviser to the Secretary-General on gender equality and women’s empowerment issues. The Executive Director would report to the Economic and Social Council and the General Assembly (through the SecretaryGeneral), and to the UNDP/UNFPA Executive Board (which would be renamed to reflect the entity’s name). To reduce costs and increase effectiveness, the entity would share common services at United Nations Headquarters and at the field level, in particular with UNDP, where available. The gender entity would be a full member of the United Nations System Chief Executives Board for Coordination (CEB) and the proposed Development Policy and Operations Group (see chap. III.A). Mandate The gender entity would be entrusted with a dual mandate combining normative, analytical and monitoring functions with policy advisory and targeted programming functions. Where necessary, United Nations country teams would include senior gender expertise. The entity’s mandate under the normative, analytical and monitoring division would include: • Facilitating and advising on system-wide policies for gender equality and women’s empowerment. • Undertaking global advocacy efforts on issues critical to women’s empowerment and gender equality, including the publication of flagship reports.

• Monitoring and evaluating, on behalf of the Secretary-General, the integration of gender equality objectives across the United Nations system, including the funds, programmes, Secretariat departments and specialized agencies.

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Box 2. Mandate and structure of the consolidated gender entity (continued from previous page) • Supporting the integration of gender equality and women’s empowerment concerns in intergovernmental bodies for development, humanitarian assistance, environment, human rights, peacekeeping and peacebuilding. • Providing substantive and technical servicing to the Commission on the Status of Women. The Panel believes that the gender entity should have sharply focused operations on gender equality and women’s empowerment issues, equipped with high-quality technical and substantive expertise, to provide leadership in regions and countries. Under the policy advisory and programming division, the entity’s mandate would include: • Providing policy advice and guidance to United Nations country and regional teams to ensure that gender equality concerns are mainstreamed in the support provided to nationally led poverty reduction and development plans. • Undertaking regional and national advocacy to put issues critical to women’s empowerment on the policy agenda. • Facilitating innovation, sharing lessons and enabling institutional learning throughout the system. • Supporting targeted and innovative activities, benefiting women in line with national and regional priorities and the objectives set out in the Beijing Platform for Action and Security Council resolution 1325 (2000) on women and peace and security. • Strengthening and monitoring accountability across the resident coordinator system and assisting resident coordinators and United Nations country teams to meet their responsibilities for gender mainstreaming. The gender entity would continue to work closely with Governments and civil society organizations, strengthening networks already established at the global, national and local levels. The operations of the United Nations gender entity would be undertaken as part of One United Nations in each country. Funding To be effective in this role, the gender entity needs adequate, stable and predictable funding. The work of the normative and analytical division should continue to be funded as it is now from the United Nations regular budget, supplemented by voluntary contributions. The policy advisory and programming division should be fully and ambitiously funded. The Panel strongly believes that substantially increased funding for the gender entity should constitute only part of the overall commitment of the United Nations to gender equality. Other United Nations entities need to dedicate significantly more resources to gender mainstreaming in all their work and decisions, in particular at the country level, and to monitor and report regularly on progress.

• But it is also our strong belief that the commitment to gender equality is and should remain the mandate of the entire United Nations system. Responsibility and accountability for the integration of gender equality concerns cannot be held by one United Nations agency or entity alone, regardless of its size and influence.

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• And finally, in our recommendations, we seek to combine greater visibility for gender issues at the centre with enhanced results on the ground, where the United Nations performance will be assessed. Recommendation: The Panel recommends strengthening the coherence and impact of the United Nations institutional gender architecture by streamlining and consolidating three of the United Nations existing gender institutions as a consolidated United Nations gender equality and women’s empowerment programme. 3. Human rights The necessary international human rights agreements and institutions are now in place, but responsibilities need to be clarified within the United Nations system. The Office of the United Nations High Commissioner for Human Rights (OHCHR) should lead the effort on protection and work with and through the resident coordinator and the United Nations country team to promote human rights, and strengthen the capacities of Governments, relevant institutions, civil society and individuals. 50. We support the Secretary-General’s contention that ‘we will not enjoy development without security, we will not enjoy security without development, and we will not enjoy either without respect for human rights’ (A/59/2005, para. 17). The responsibility to make this happen lies with countries, and the necessary human rights instruments and agreements are now in place. At the 2005 World Summit Member States reaffirmed their commitment to address human rights through a new Human Rights Council, and gave unprecedented political backing for the further mainstreaming of human rights in the work of the United Nations. We remain deeply concerned, however, that the global implementation of human rights lags far behind its articulation. 51. The legitimacy of the United Nations to address human rights has been reaffirmed in our consultations, including support to national counterparts in their pursuit of international human rights commitments. Yet an assessment of the decade’s worth of effort to mainstream human rights in all areas of United Nations work shows limited progress, in part because of widespread misunderstanding about where responsibility lies for human rights promotion and protection. Recommendation: Resident coordinators and United Nations country teams should be held accountable and be better equipped to support countries in their efforts to protect and promote human rights. They should assist countries in implementing their human rights obligations and commitments as part of their national development strategies. Recommendation: OHCHR, the centre of excellence on human rights, should provide dedicated support to the resident coordinator system. It should ensure appropriate linkages with and coordination between the resident coordinator system and the United Nations human rights special procedures and mechanisms. It should take the lead on human rights protection, including the provision of technical assistance at the request of countries to assist Member States in fulfilling their existing human rights obligations and commitments.

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Recommendation: All United Nations agencies and programmes must further support the development of policies, directives and guidelines to integrate human rights in all aspects of United Nations work. The United Nations common understanding on a human rights-based approach to programming and the United Nations-wide Action 2 Programme—developed and adopted by 21 heads of United Nations agencies, programmes and departments—should provide useful guidance in this.

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CHAPTER THREE

GOVERNANCE, FUNDING AND MANAGEMENT 52. We have already recommended changes to the way the United Nations is managed at the country level. A more coherent and better functioning United Nations would benefit developing countries. For these changes to be effective, they need to be supported by similar coherence of functions at the centre. 53. Substantial change is required in governance, management and funding arrangements to realize the vision of a more effective and coherent United Nations. Having examined the intergovernmental and organizational structures from this perspective, the Panel believes that achieving a more effective and coherent United Nations calls for consolidating some functions and strengthening others, as well as devising new modalities. This process should be designed to enhance the flexibility, responsiveness and coherence of the United Nations system. The principles underlying these proposals for reform of governance, funding and management are ownership, effectiveness, transparency and coherence. 54. The Panel believes that stronger and more effective mechanisms must be developed for governance and funding. These mechanisms must incorporate clear lines of accountability and robust oversight of performance and results. To deliver lasting change, they must be transparent, inclusive and decisive. We have therefore proposed the creation of bodies that have the power to take decisions. This process will involve significant changes for United Nations agencies, developing countries and donors alike. United Nations agencies need to work more closely and effectively with the rest of the United Nations system in the interests of a greater common good. Donors, too, will need to change the way they fund the United Nations so that it is in line with the principles of multilateralism. These changes are essential if we are to be successful in the management and delivery of One United Nations. A. GOVERNANCE: CONSOLIDATING SOME FUNCTIONS, STRENGTHENING OTHERS Effective governance is at the core of coherence. To enable the United Nations to ‘deliver as one’ on global development challenges, and in particular to make the ‘One United Nations’ at the country level a reality for developing countries, the Panel proposes the following series of measures. Intergovernmental level • To provide a high-level forum for strategic guidance on sustainable development policy and global public goods, a Global Leaders Forum should be established. • A Sustainable Development Board should be established to provide operational oversight and supervision of the ‘One United Nations’ at the country level. The Board would also take decisions on pooled voluntary funding for country programmes.

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Regional level • The important regional work of the United Nations must be streamlined by establishing regional hubs to support United Nations country teams and clarifying the roles of regional commissions. Organizational level • The United Nations System Chief Executives Board for Coordination should improve its decision-making role on overall reform and effectively drive managerial reform. • The Development Policy and Operations Group should be the central coordinating mechanism for United Nations work on development at the country level. It will bring policy and operational roles together and will be chaired by a Development Coordinator. The Group would comprise the major development organizations in the United Nations. • A clear firewall and accountability framework should be established between a repositioned UNDP support to the resident coordinator system and its reduced operations role. This will allow the full ownership of the United Nations system in the resident coordinator system (see chap. II.A). • A Development Finance and Performance Unit should support the Development Policy and Operations Group in providing information and analysis on United Nations system funding, expenditures and results. 1. Streamlining and consolidation 55. The Panel has benefited from extensive consultations on the functioning of the United Nations system at the country, regional and global levels. It has also concentrated on the key drivers and incentives required for coherence from a bottom-up approach. More detailed and specific proposals for further streamlining and consolidation to improve system-wide coherence require a more in-depth analysis than was feasible within the context of our work. The Panel believes that it is important to build on its work by further considering the removal of unnecessary duplication in the United Nations system and by ensuring the clear delineation of roles and mandates. 56. We do not however advocate a single United Nations entity because some individual agencies can best achieve their vital role in the provision of global public goods, advocacy, research, promoting best practice and global norms and standards by operating individually in their specific sectors. Recommendation: The Panel recommends that the Secretary-General establish an independent task force to build on the foundation of its work. It would: • Clearly delineate the roles of the United Nations and its funds, programmes and specialized agencies to ensure complementarity of mandates and to eliminate duplicated functions, making concrete recommendations for consolidating or merging United Nations entities where necessary. Such a process has the potential to lead to

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significant annual savings, possibly up to 20 per cent, which should be redirected to supporting the One United Nations at the country level. • Review the assessed funding required by United Nations specialized agencies—to address the current imbalance between assessed and voluntary resources dedicated to the implementation of normative mandates. The review should determine whether the current policy of zero real growth can allow United Nations agencies to deliver on global mandates. • Review the functioning and continuing relevance of existing regional structures in addressing regional needs, taking into account the different needs of regions and the emergence of strong regional and subregional institutions. The review should also consider options for streamlining and consolidation. 2. Intergovernmental structures 2.1 Economic and Social Council 57. The General Assembly is the highest intergovernmental body for formulating policy on economic, social and related matters. The Economic and Social Council is the main body for coordination, policy review, policy dialogue and recommendations on economic and social development and for the review and follow-up of the internationally agreed development goals. 58. The Council’s mandate has been far greater than its exercise of it. Despite many attempts to strengthen its role, the Council continues to lack effectiveness and influence. Its oversight of the funds and programmes remains perfunctory and is almost non-existent for the specialized agencies. The Council needs to improve its operational and coordination functions with regard to the entire system. 59. Much can be done to improve the Council within its current mandate, but it will require new forms of functioning. Leaders at the 2005 World Summit took steps to enable the Council to play an effective policy coordination role as envisaged in the Charter of the United Nations. The Panel believes that the vision for the Council in the 2005 Summit should be faithfully implemented, and that the Council should be further empowered through the involvement in its work of Member States at the highest possible political level. Box 3. Role of the Global Leaders Forum • Provide leadership and guidance to the international community on development and global public goods related issues. • Develop a long-term strategic policy framework to secure consistency in the policy goals of the major international organizations. Promote consensus-building among Governments on integrated solutions for global economic, social and environmental issues.

Recommendation: A Global Leaders Forum of the Economic and Social Council should be established. The Forum would comprise the leaders of half its members,

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rotating on the basis of equitable geographic representation, with the participation of the executive heads of the major international economic and financial institutions. Its meetings could be preceded by a preparatory meeting of ministers for foreign affairs and economic, social and related ministries. 2.2 Sustainable Development Board 60. The Panel believes that a new governance mechanism is required to provide oversight for the One United Nations at the country level. Current board structures of the United Nations system provide only for individual funds, programmes and agencies to report separately to their respective boards for their country, regional and global work. There is a need to provide operational guidance and direction to the separate organizations for the coherence and effectiveness of the United Nations system at the country level. The Panel recommends the establishment of a Sustainable Development Board, reporting to the Economic and Social Council. It will be responsible for operational coherence and coordination, and system-wide implementation of policies, for allocations of voluntary funding and for performance of the One United Nations at the country level. Box 4. Role and mandate of the Sustainable Development Board • Endorse One Country Programmes and approve related allocations of voluntary donor finance from the Millennium Development Goal funding mechanism (see box 6). Following an inclusive planning process by the United Nations country team, in line with the principle of country ownership, and approval of the programme by the country, the Sustainable Development Board will endorse unified country programmes and approve the allocation of voluntary funds. It would ensure agency alignment with jointly agreed United Nations priorities. • Maintain a strategic overview of the system to drive coordination and joint planning between all funds, programmes and agencies to monitor overlaps and gaps. • Review the implementation of global analytical and normative work of the United Nations in relation to the One United Nations at the country level, to progress towards the internationally agreed development goals and to provide strategic guidance on the policy and analytical work of United Nations sustainable development activities. • Oversee the management of the funding mechanism for the Millennium Development Goals, which will coordinate donor resources and consolidate allocations. The Board’s decisions, particularly on allocations, will be informed by strategic policy and operational advice provided by the Development Policy and Operations Group, under the leadership of the Development Coordinator. To fulfil this role the Group requires an internal Development Finance and Performance Unit to manage voluntary donor finance and monitor system-wide performance (see chap. III.B).

• Review the performance of the resident coordinator system, taking all necessary steps to strengthen coherence and delivery. This will include monitoring the implementation and delivery of efficiencies, results-based management and the harmonization of business practices. It will also cover the provision of common services to all funds, programmes and specialized agencies in the field.

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Box 4. Role and mandate of the Sustainable Development Board (continued from previous page) • Consider and comment on the implementation of the strategic plans of funds, programmes and specialized agencies with a role in delivering the Millennium Development Goals, the other internationally agreed goals and normative activities relating to sustainable development, particularly in the context of the One Country Programme. The Board would assess and strengthen system-wide operational and normative coherence, performance and effectiveness of United Nations system-wide sustainable development activities. There should be additional discretionary funding available to the Board to provide incentives for good performance of Headquarters of funds, programmes and specialized agencies and to fund programmatic gaps and priorities. • Commission periodic strategic reviews of One Country Programmes. The Board will ensure that the One Country Programmes are aligned with national development plans, have full country ownership established through inclusive consultative processes and are focused on internationally agreed development goals. Strategic reviews will be prepared for the Board’s consideration under the direction of the Development Coordinator. The Board should provide clear guidance and directions to relevant stakeholders to implement the recommendations of such reviews. • Consider and act on independent evaluation, risk management and audit findings, submitted by the new Independent Evaluation Unit, established by the Secretary-General and reporting to the Board. This Unit will strengthen evaluation across the development system and provide timely, independent performance information to improve the system and its processes (see chap. III.B). Membership and reporting The Economic and Social Council should establish the Board and determine its membership in line with experience gained from the composition of the executive boards of the funds, programmes and specialized agencies. The Board will comprise a subset of Member States on the basis of equitable geographic representation. Senior staff from development, planning, finance and foreign ministries, with the appropriate skills and competencies, should represent Member States. The Board should convene at the ministerial level when required. It should enable major non-United Nations intergovernmental organizations with a key role in the international development architecture to fully participate in its meetings. The Board’s decisions should be communicated to all relevant United Nations intergovernmental bodies. Executive heads of United Nations agencies, or their deputies, with significant operational and normative programmes, should take part as ex officio members. When allocating funding for a One Country Programme, a high-level representative from that country should be invited. The Board should invite independent experts, senior officials of the Bretton Woods institutions and NGOs to participate in discussions and to inform the Board’s decision-making, when necessary.

61. Individual boards should continue to consider issues that require particular agency focus, including those relating to multi-year funding frameworks that reflect the approved strategic focus of each agency. The Sustainable Development Board will review the consolidated One Country Programme, which will include components developed by individual organizations, reflecting the policies and directives of their respective boards.

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Recommendation: A Sustainable Development Board should be established. Reporting to the Economic and Social Council, the Board would provide the decision-making and monitoring framework for implementation of One United Nations at the country level. The Board would be responsible for oversight of the implementation of the pilot programme to create unified United Nations country programmes. Recommendation: Meetings of the Sustainable Development Board should supersede the joint meeting of the boards of UNDP/UNFPA/gender entity, WFP and UNICEF. After three years the effectiveness of the Board should be assessed. This assessment should include consideration of the scope for integrating the boards of UNDP/UNFPA and UNICEF as segments of the Sustainable Development Board, rather than maintaining them as stand-alone boards. Milestone: Member States should agree on the composition and mandate of the Sustainable Development Board by September 2007, and the Board should convene its first session by June 2008. The new bodies necessary to support the Board (Development Policy and Operations Group, including the Development Finance and Performance Unit and the Independent Evaluation Unit) should have been established by June 2007. By 2010 an independent assessment of the Board’s effectiveness should be commissioned. 3. Organizational structures 62. A more coherent development system would unify and integrate the global analytical and normative work of the United Nations, with regional perspectives and country level interventions, and maximize synergies between them. It would create a mechanism to deploy the multidimensional perspectives of the United Nations in support of policy advice and technical services to all countries. This would help the United Nations to secure its place as a unique, credible and complementary partner in the international development architecture. Through consolidation, priority-setting and the elimination of duplication, a reconfigured development system will improve performance and increase cost-effectiveness. It will significantly increase managerial accountability and effectiveness without creating a large centralized bureaucracy. And at the country level, it would provide the framework for One United Nations. 3.1 United Nations System Chief Executives Board for Coordination 63. CEB, established in 2000, has led to some improvement in inter-agency coordination. The High-level Committees on Programmes and Management have developed more coherent approaches to system-wide themes and coordinated approaches to reform business processes. But the Board’s potential has been underexploited and its decision-making role has been underused. An effective results-oriented CEB as a counterpart to a better functioning Economic and Social Council would enhance coherence throughout the system. Recommendation: CEB should review its functions, in the light of experience gained since its establishment five years ago, with a view to improving its performance and accountability for system-wide coherence.

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3.2 Development Policy and Operations Group 64. The Panel believes that a Development Policy and Operations Group should be established for organizational coherence, within the CEB framework, to unify and integrate the United Nations global analytical and normative work with regional perspectives and country operations. The Group would provide vision to bring together economic, social and environmental policies and activities into an integrated whole. It would subsume the current United Nations Development Group and the Executive Committee on Economic and Social Affairs. It would be served by a secretariat comprising talented officials from all parts of the United Nations system. Box 5. The role of the Development Policy and Operations Group • Provide an inclusive forum for strategic decision-making, improve the effectiveness of the United Nations operational activities at the country level, build system-wide ownership of the resident coordinator system and enable member agencies to work collectively and deliver as One United Nations at the country level. • Provide a framework to link normative, analytical and technical expertise to support nationally owned and led development programmes. • Provide knowledge networking, sharing best practices and technical expertise to support regional and subregional programming. • Create an incentive system for coherence, efficiency, cost-effectiveness and networking in deploying United Nations resources. • Support the Development Coordinator in reporting to the Sustainable Development Board. The Development Finance and Performance Unit, under the Development Policy and Operations Group, would • Act as a coordinating clearing house and database of all United Nations funding sources and spending to assist the Sustainable Development Board with strategic financial planning and allocations. • Provide advice to the Board on country and regional financial allocations and allocations for global policy work. • Provide advice to the Board on setting and delivering efficiency measures to maximize investment in programming, based on internal country and regional performance reports and audits. • Provide a common internal audit system for all United Nations sustainable development activities. Provide an annual performance and financial report on all United Nations sustainable development activities.

65. The Panel proposes that the Secretary-General appoint the UNDP Administrator as the Development Coordinator to chair the Development Policy and Operations Group. The Panel also proposes that the Group comprise the executive heads of United

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Nations funds, programmes, regional commissions, specialized agencies and the United Nations Secretariat. The Panel proposes that the Chair of the Group be supported by the head of the Department of Economic and Social Affairs, acting in the capacity of United Nations chief economist, and an executive head of a United Nations specialized agency with a significant operational portfolio, serving on a rotating basis. An Executive Committee consisting of the heads of United Nations funds, programmes and specialized agencies with significant portfolios and those with major cross-cutting mandates would be formed, including the Head of the Department of Economic and Social Affairs. The Development Coordinator would report and be accountable to the Sustainable Development Board. Recommendation: The Secretary-General should appoint the UNDP Administrator as the Development Coordinator to chair the Development Policy and Operations Group that would support One United Nations at the country level. The Development Coordinator would report and be accountable to the Sustainable Development Board on the implementation of the One United Nations. A Development Finance and Performance Review Unit should be established to support the Development Policy and Operations Group. 3.3. Regional structures and coordination 66. The regional economic commissions were established to promote economic and social development in their regions. And United Nations funds, programmes and agencies have developed regional mechanisms to provide technical and management support to their country offices. The result is a broad regional presence for the United Nations, providing a vast potential of assets and expertise, but increasing duplication, fragmentation and incoherence. 67. Over time, certain regional commissions have continued to meet regional needs while others have lost focus in applying their comparative strength in conducting regional analysis, developing policy frameworks and norms and supporting regional integration efforts and activities—instead devoting attention to operational activities at the country level. Strong institutional arrangements are now needed to ensure complementarities and build a genuine culture of cooperation among all United Nations organizations active in each region, as well as between the United Nations and non-United Nations regional entities. Recommendation: United Nations entities at the regional level should be reconfigured and the United Nations regional setting should be reorganized around two interrelated sets of functions: • Focusing on analytical and normative work, as well as activities of a transboundary nature. The regional commissions would act as a catalyst for these functions, using, inter alia, their convening power at both the intergovernmental and Secretariat levels. • Focusing on coordinating the servicing of the United Nations country teams. Being responsible for managing the resident coordinator system, UNDP would act as the catalyst for these functions.

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Recommendation: Regional offices of United Nations entities should be co-located and the definition of regions among all United Nations entities should be standardized to ensure consistency and coherence in the work of the United Nations at the regional level. 3.4 Coherence at the national level 68. Global development issues are interconnected, but in national Governments, responsibilities usually fall within separate line ministries (for trade, aid, debt, agriculture, environment, labour employment, health and education). As the global economy becomes more integrated, so will the linkages among these issues. Without coherent policy and leadership within national governments, disparate policies and fragmented implementation will undermine the effectiveness of multilateral organizations. Greater coherence within governmental structures, particularly for donors, can ensure coherence of policy development and implementation, both bilaterally and through multilateral institutions. 69. National Governments must also do more to ensure coherence and exercise good donorship in accordance with the mutual obligations of donors and recipients as set out in the Monterrey Consensus and the Paris Declaration on Aid Effectiveness. A candid international examination should be made of the developed countries’ policy choices and the fulfilment of their commitments, including that by the Development Assistance Committee of the Organization for Economic Cooperation and Development. Recommendation: At the national level, Governments should establish an ‘all-ofgovernment’ approach to international development to ensure coordination in the positions taken by their representatives in the decision-making structures of all relevant organizations, including the Bretton Woods institutions and the World Trade Organization. Pursuing consistent policies in the different settings can ensure that all relevant governing bodies effectively promote system-wide coherence to achieve internationally agreed goals. Recommendation: The United Nations should establish benchmarks by 2008 to ensure the implementation of principles of good multilateral donorship, so that the funding provided at headquarters and at the country level do not undermine the coherence of development efforts and funding of the United Nations development system. 3.5 Relations with the World Bank and the International Monetary Fund 70. System-wide coherence at the United Nations cannot be discussed in a vacuum. It needs to be placed in a broader contextual framework of a dynamic international setting in which there are a large number of other relevant international actors and efforts. Today’s consensus on the international development agenda is a result of the internationally agreed development goals and of platforms for their implementation through nationally owned development strategies and support by the donor community. This adds to the need for credible engagement of the United Nations with other development actors, since the success of this common agenda can be realized only through coherence in implementation.

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71. Given the universality of the United Nations and the complementary role of the Organization and the Bretton Woods institutions in economic, social and related fields, there is an urgent need for a more credible and meaningful engagement between the United Nations system and the international financial institutions. This is needed to secure policy consistency and enable countries to achieve their development objectives. The United Nations and the Bretton Woods institutions were established with the intention that they would work together in a complementary way. Over time both the World Bank and the United Nations institutions have gradually expanded their roles so that there is increasing overlap and duplication in their work. There is a balance to be struck between healthy competition and inefficient overlap and unfilled gaps. The Bretton Woods institutions and the United Nations need to work more closely together to remove unnecessary duplication, and to build on their respective strengths. Recommendation: As a matter of urgency the Secretary-General, the President of the World Bank and the Executive Director of IMF should set up a process to review, update and conclude formal agreements on their respective roles and relations at the global and country level. These reviews must be periodically updated as well as assessed. This process should be undertaken on the basis of the enhanced performance, strengthened delivery and more influential role that the United Nations will have if our reforms are implemented. • Global level. The participation of the Bretton Woods institutions in the annual spring meetings of the Economic and Social Council and the biennial high-level dialogue of the General Assembly should be more substantive. The focus should be on areas of common interest and on concrete measures to promote policy consistency to achieve the internationally agreed development goals. The United Nations status and participation in the Development Committee should be enhanced. Joint research and staff exchanges and peer reviews should become regular. The sharing of information and opinions on draft reports and strategic documents should be improved. • Country level. The United Nations, the World Bank and IMF should cooperate closely in supporting countries on their national development strategies, including poverty reduction strategies and Millennium Development Goal strategies. Common frameworks to collect data and measure results should be developed. The World Bank and the United Nations should work jointly on needs assessments, with full national ownership. The skills and legitimacy of the United Nations in capacity-building should be fully used. • Post-conflict transition. The United Nations and the World Bank should clarify the terms of collaboration in post-conflict situations and institutionalize a dialogue with clear counterparts on both sides. The United Nations should take the lead in the political and governance aspects of post-conflict issues, including deteriorating governance, and on electoral issues, as well as in supporting and funding early recovery when the capacity and processes are not in place yet to have a regular development process. The World Bank should be involved early in these processes and can assist in setting up multi-donor trust funds and more regular funding based on nationally owned recovery and development strategies.

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Recommendation: To review cooperation within the international development structure, and to ensure policy consistency and coordination, an annual meeting should be chaired by the Secretary-General, with the participation of the President of the World Bank, the Managing Director of IMF, the Development Coordinator and relevant heads of agencies, funds and programmes, including the Directors-General of the World Health Organization (WHO), the Food and Agriculture Organization of the United Nations (FAO), the International Labour Organization (ILO), the United Nations Educational, Scientific and Cultural Organization (UNESCO) and others, depending on the issue under discussion. 4. Engaging civil society organizations and the private sector 72. Progress towards the internationally agreed development goals has improved through the active engagement of the United Nations with different actors at various levels, including partnerships with Governments, civil society and the private sector. 73. Civil society organizations can drive the United Nations development agenda forward. They are indispensable partners in delivering services to the poor, and they can catalyse action within countries, mobilize broad-based movements and hold leaders accountable for their commitments. In crisis, post-conflict and post-disaster countries, national and international NGOs are vital implementing partners — without them, United Nations humanitarian assistance could not be delivered. 74. The private sector has a vital role in generating new investments, creating full and productive employment, contributing to financing for development and managing natural resources and the environment. Coalitions of private foundations and publicprivate alliances have emerged as some of the more dynamic means of transferring financial and technical resources to realize sustainable development goals. They are also important platforms to promote corporate social responsibility and accountability. 75. While Governments remain the primary interlocutors for country-level engagement with the United Nations, civil society and private sector inputs into the preparation of the One Country Programme are important to ensure full national ownership and relevance. United Nations country teams should work with Governments to support an enabling environment for productive employment and enterprise development, and to encourage knowledge development, partnerships, corporate social responsibility, skills transfer and public-private networking across regions. 76. While the relationship between the United Nations and civil society is as old as the Charter, United Nations cooperation with civil society organizations and the private sector needs to be systematized and upgraded to enable these partnerships to contribute more effectively to the implementation of internationally agreed development goals. Recommendation: The capacity of the resident coordinator’s office to advocate, promote and broker partnerships between Government and relevant civil society organizations and the private sector should be enhanced to build stakeholder consensus and realize country-specific goals as embodied in the national development plans.

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B. FUNDING THE UNITED NATIONS SYSTEM FOR RESULTS For coherent action to help achieve the Millennium Development Goals and other internationally agreed development goals, the United Nations needs sustained funding for the One Country Programme, as well as secure core funding for United Nations entities that have a demonstrable commitment to reform. Donors should increasingly pool their contributions at country or headquarters level, based on the performance of the United Nations in pilot cases. 77. For development at the country level, the role of the United Nations is not that of a major financial resource provider, but that of convener, policy adviser, commodity provider and capacity-builder. Exceptions are post-conflict situations, where the United Nations plays a major role, often with trust fund resources. The total ODA channelled through the United Nations annually is approximately USD 10 billion. 78. To make the One Country Programme a success and to tackle global challenges, United Nations funding practices and mechanisms need urgent review. Current practices for funding the United Nations are fragmented and unpredictable. They constrain the United Nations and recipient countries from making strategic choices for the use of funds and in contributing to the Millennium Development Goals and other internationally agreed goals. The Development Coordinator should convene a meeting of the Development Policy and Operations Group with major donors to discuss and elaborate the practical changes required in donor practices to fund the One Country Programmes. 79. There is too much earmarked funding and too little funding for the core budget of United Nations organizations. Moreover, funding is unpredictable, and burden-sharing procedures are unclear. So United Nations organizations are only to some extent masters of their own budgets, with donor priorities rather than multilateral mandates determining some of their actions. Even in specialized agencies, assessed contributions have not increased for years, leaving them to rely on voluntary funding for core activities. 80. Current funding practices also lead to competition and fragmentation, often with relatively small budgets per agency at the country level, while the common programme is left with insufficient resources. A review of 10 United Nations country teams found on average that only 40 per cent of their resources are mobilized through core resources. United Nations organizations have to put considerable effort into fundraising. Some argue that the resident coordinator system should be funded through assessed contributions, in line with an agreed contributions scale, which is how the United Nations Secretariat, peacekeeping operations and core specialized agency budgets are funded. 81. Sustained and consolidated funding is the key to reversing the fragmentation of the United Nations system. More secure funding has to go hand in hand with better performance, oversight, accountability, efficiency and results. That is why the Panel devoted considerable attention to governance and management and recommends steps to resolve them, based on the following principles:

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• United Nations organizations that have a demonstrable commitment to reform, effectiveness and working together need sufficient sustained core funding—or, where applicable, assessed funding—to fulfil their missions. There should also be sufficient funding for supporting and strengthening the resident coordinator system. • There should be one budgetary framework for the One Country Programme, reflecting all contributions. Donors should increasingly pool their contributions at the country or headquarters level, based on United Nations performance in pilot cases. They should increasingly refrain from funding country-level interventions by the United Nations system outside the One Country Programme. • While pursuing greater coherence, diversity has brought the United Nations system many resource mobilization opportunities and successful brands, allowing both donors and recipient countries a degree of choice. Some diversity in the system is thus to be welcomed. Recommendation: Funding for the One Country Programmes should be predictable and multi-year. The five One Country Programme pilots should be funded by pooled country-level funding. Subject to continuous positive assessment, demonstrated effectiveness and proven results, they should be expanded to 20 One Country Programmes by 2009, 40 by 2010 and all other appropriate country programmes by 2012. Following the five pilots, the One Country Programmes will also be funded by voluntary contributions to a consolidated funding mechanism, the Millennium Development Goal funding mechanism (see box 6). Box 6. Funding the United Nations system for results Full funding for the Once Country Programme At the country-level, contributions to the One Country Programme should be consolidated within a single budgetary framework, which would not constitute a legal constraint on the spending authority of funds, programmes and specialized agencies. The one budgetary framework brings together all contributions to the One Country Programme. To fund the One Country Programme through this single budgetary framework, the Panel recommends the following funding sources: • The five pilots of the One Country Programme should be funded by pooling funding in the country. For donor contributions to each pilot, a country-level Millennium Development Goal strategy support fund should be established, to be administered by the resident coordinator, in line with national priorities. In principle, funding from all sources for the One Country Programme should flow through these country funds. Donors would be strongly encouraged to contribute through these funds.

• A Millennium Development Goal funding mechanism should be established following the five pilots. This voluntary mechanism would coordinate overall resource flows enabling global oversight of funding available for contributions to the One Country Programme. The mechanism should be governed by the Sustainable Development Board under the supervision of the development coordinator. Donors are strongly encouraged to make funds available to this mechanism at the central or country level. United Nations organizations could also contribute core funding for the One Country Programme within the framework of this mechanism.

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Recommendation: There should be full core funding for individual United Nations organizations committed to reform. • There should be full core funding for individual funds and programmes demonstrably committed to reform, effectiveness and working together, through strengthened and improved multi-year funding frameworks, with strategic priorities, related funding priorities and robust indicators. By 2008 funds and programmes should align their multi-year funding cycles to facilitate strategic coordination. • There should also be a review of assessed funding of the specialized agencies, to enable them to continue their essential work on global norms and standards and assess whether the current policies of zero real growth is adequate. • The strengthened resident coordinator system should be fully funded. Resources earmarked for supporting the system should continue to be managed separately from UNDP programme resources. Recommendation: The United Nations should drive reform by channelling reform savings back into the system through mechanisms, such as an empowerment fund. This fund would demonstrate to the world’s poorest citizens, communities and local entrepreneurs that United Nations savings will be invested directly in their empowerment. It would be financed with minimal overhead through efficiency cost savings resulting from reforming, consolidating and streamlining United Nations functions and organizations, as recommended by the task force to be established by the Secretary-General (see chap. III.A). This fund could redirect savings from efficiency reforms back to country-level strategies (One Country Programme) with a special emphasis on helping countries achieve the Millennium Development Goals. C. REFORMING UNITED NATIONS SYSTEM BUSINESS PRACTICES: BUILDING INSTITUTIONS OF PUBLIC TRUST Business practices for resource planning, human resources, common services and evaluation must achieve full compatibility as major drivers of coherence in the United Nations system. There should be greater opportunities for staff mobility and a systemwide agreement on results-based management as well as an independent United Nations system-wide evaluation mechanism and common evaluation methodologies and benchmarking. The United Nations must systematically examine opportunities and possibilities for joint services. 82. The business practices, processes and culture of the United Nations system have evolved in an incremental and ad hoc manner over 60 years, in response to specific situations and agency needs. This has widened the disconnection between organizations of the system, contributed to inefficiency and hindered the development of a common management culture that is accountable and results-oriented. To boost public trust, the United Nations needs to demonstrate more transparency and accountability. 83. There is no central management authority in the United Nations to implement common rules and practices. So individual organizations pursue various initiatives, without incentives to harmonize for the benefit of the United Nations system as a whole. Without explicit commitment from organizational leaders, common services

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cannot work. We believe the time has come to establish a process leading to a common framework for business practices in the United Nations. This will transform the way the United Nations works, build a culture of collaboration, improve the system’s effectiveness in achieving organization-wide programmatic results and lead to significant savings. Harmonized business practices will enhance the United Nations system’s capacity to deliver the One Country Programmes. Savings from efficiency gains will be redirected to these programmes. 84. Harmonizing systems in itself does not achieve coherence. Needed first is an agreement on standards, to ensure that value is added in pursuing change. Using internationally recognized standards would facilitate the simplification and harmonization of business practices within the United Nations system. 85. Public trust will be reinforced through measurable results. Evaluations throughout the system use different measurement criteria, which are often too narrowly defined by quantifiable terms, rather than by measurements of longer term impact. 86. Attracting and retaining the most qualified staff for an effective and independent civil service is not possible with a human resource system based on different performance evaluation systems, entitlements and contracts. To encourage mobility and cross-fertilization and to prepare staff for positions of greater responsibility, the system’s appraisals must be based on performance, not seniority. A competitive and incentive-based system is required. The International Civil Service Commission has become a politicized body that represents the interests of Member States, rather than operational priorities. It is too slow and needs substantial change. 87. Current governance mechanisms need to be modernized. Without an overarching management system to drive change, there can be no management control and little progress towards coherence. For CEB to work more effectively, the United Nations agencies must first commit to the need for its revised terms of reference. Recommendation: CEB, chaired by the Secretary-General, should lead efforts to improve management efficiency, transparency and accountability of the United Nations system. It should be used more effectively in its principal role as a high-level decisionmaking forum in the United Nations system on substantive and management issues. CEB reporting and transparency to intergovernmental structures should be improved. Recommendation: The business practices of the United Nations system should be harmonized: • International Public Sector Accounting Standards, which will be implemented across the entire United Nations system by 2010, must provide an important basis for simplifying and harmonizing business practices. • To break down barriers to programmatic and administrative collaboration, enterprise resource planning standards, and data warehouses for reporting, should be harmonized across the system by 2010. Entities currently selecting enterprise resource planning systems (including the United Nations Secretariat) should base their selection on data-sharing compatibility and interconnectivity. • Improvements in results-based management, results-based budgeting, evaluation and other measures to increase transparency and accountability should be in place

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by 2008. This should include harmonizing the principles, terms and methods of results-based management and the audit procedures across the United Nations system. • A system-wide security management system based on common policies, standards and operating procedures should be established at the country level, particularly for humanitarian affairs. Recommendation: Evaluation mechanisms should be established for transparency and accountability. A United Nations system-wide independent evaluation mechanism should be established by 2008, and taking into account the evolving role of the Office of Internal Oversight Services, to monitor how system-wide goals are being delivered. A separate system to enable peer reviews across organizations should also be developed. A common evaluation methodology should be applied across the United Nations system by 2010 to permit benchmarking and inter-agency comparisons and facilitate exchanges of best practices. Standardized information and data related to United Nations activities, programme delivery, budgets, staffing and cost-effectiveness should be transparent and publicly available. Harmonizing systems and methodologies will provide Member States with a more transparent overview of United Nations system results and financial figures by area of interest and type of activity. Recommendation: Human resource policies and practices should be updated and harmonized. An authoritative and independent external evaluation to reform the International Civil Service Commission should be carried out in 2007. Human resource management policies and contractual arrangements should be simplified, harmonized and updated in line with an emphasis on results, performance management systems and accountability frameworks. Recruitment and promotion policies should be underpinned by the principle of ‘meritocracy with equity and representation’ and developed to improve staff capabilities and ensure a culture of management for results. Human resource policies must enable mobility of the staff across the system and the transferability of pensions. Host countries should be encouraged to enable the employment of spouses of United Nations staff. A fundamental overhaul of staff training and career development programmes should be carried out by 2010 to ensure that, at all levels of the system, staff serving the United Nations are motivated and have appropriate professional skills. The United Nations System Staff College should have the capacity to provide executive leadership training to senior United Nations managers. This would enable more effective management of change processes and contribute to a common management culture in the United Nations system. Recommendation: Executives should be selected according to clear criteria, and for limited terms. All appointments or elections to executive positions in United Nations organizations should be in line with clear and effective criteria, limited to two terms of four or five years. Recommendation: Change should be managed at the highest levels. The overall management of reform of business practices should be invested in the Secretary-General, in his capacity as chairman of CEB, assisted by a bureau of staff specialists as part of the CEB machinery. All chief executives in the United Nations system should develop plans to reform the business practices in their organizations together with resource requirements for investing in change processes.

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88. The Panel is of the view that implementing the reforms necessary to enable the United Nations to deliver as one will require time and energy. A dedicated team will be needed at a senior level within in the United Nations system to ensure that progress is being made on the changes being recommended. Recommendation: The Panel recommends that the Secretary-General appoint a senior member of his staff and provide the necessary resources to form a senior change management team. The team would be responsible for tracking and supporting implementation, and reporting regularly to the Secretary-General and Member States on progress to implement the recommendations of the High-level Panel on United Nations System-wide Coherence, in the areas of development, humanitarian assistance and the environment.

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ANNEX ONE

TERMS OF REFERENCE OF THE PANEL, ISSUED ON 15 FEBRUARY 2006 A. BACKGROUND 1. In the Outcome document adopted at the 2005 World Summit in New York global leaders called for much stronger system-wide coherence across the various development-related agencies, funds and programmes of the United Nations. In addition to supporting current, ongoing reforms at building a more effective, coherent and better-performing United Nations country presence, it specifically invited the SecretaryGeneral to ‘launch work to further strengthen the management and coordination of United Nations operational activities.’ They also called for such work to be focused on ensuring that the United Nations maximized its contribution to achieving internationally agreed development goals, including the Millennium Development Goals, including proposals for ‘more tightly managed entities’ in the field of development, humanitarian assistance and the environment. 2. The Secretary-General intends to commission a small panel, supported by Adnan Amin, United Nations Environment Programme (UNEP), as Executive Director, and appropriate research and analytical capacity from inside and outside the United Nations system, to develop concrete and comprehensive analysis and recommendations in this regard. The Secretary-General is determined to ensure that while this work is under way, existing reform initiatives endorsed in the Outcome document, including those for a strengthened role for special representatives of the SecretaryGeneral and resident coordinators, and the strengthening of the United Nations country team through a common management programming and monitoring framework should continue. The Secretary-General considers that the outcome of this exercise would provide an important complement to the ongoing reform deliberations in the General Assembly. B. TIMELINE 3. The Panel will seek to consult on an interim basis with the United Nations System Chief Executives Board for Coordination (CEB) at its meeting in April 2006. This would allow for further consultation with member states at the Economic and Social Council in July 2006 and for the full study to be completed by the next session of the General Assembly to allow for embarking on possible implementation in 2007. C. SCOPE 4. As set out in the Outcome document, the three elements of the study will need to have slightly different scope: (a) In the field of humanitarian assistance significant progress has been made in recent years in providing more coordinated response to emergencies at the country

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level. The Outcome document also commits the General Assembly to strengthening the coordination of humanitarian and disaster relief assistance of the United Nations and separate follow-up work is already under way in this regard. However, the growing scale and scope of disasters, particularly natural disasters, underlines the importance of improving the timeliness and predictability of humanitarian funding, mainly by improving the Central Emergency Response Fund, in part through a thorough evaluation of lessons learned from recent experience. This part of the study will also need to focus on ways of developing and improving mechanisms for the use of emergency standby capacities for a timely response to humanitarian emergencies; (b) In the field of environmental activities, two separate issues need to be addressed. First, in the normative area, a full assessment should be made of how the United Nations can best provide more comprehensive and coherent management and monitoring of the growing range of multilateral environmental agreements. This should include the development of stronger scientific and analytic capacity in monitoring, assessing and reporting on critical environmental trends. Second is the need for better integration of the environmental perspective within the broad principle of sustainable development in United Nations country-level activities and in particular capacity-building and technology support undertaken by the entire United Nations system. The General Assembly may launch its own deliberations on the issue of international environmental governance issues in early 2006 and it would be important to ensure that these efforts are complementary; (c) In development, despite wide-ranging reforms over the past five years strengthening the role of the resident coordinator and the United Nations country team, developing and donor countries alike remain concerned that, overall, United Nations development at the country level remains overly fragmented and supply-driven. The Outcome document commits all countries to map out their own national strategies to meet international conference goals, including the Millennium Development Goals. In this context, the study will need to analyse how the United Nations system as a whole can be better reoriented to provide more efficient, coherent demand-driven support to national partners by building on its core normative, technical assistance and capacitybuilding strengths to partner with the longer-term financing and other support brought by the World Bank and other international partners. In this regard, it will be particularly important to consider how to strengthen linkages between the normative work and the operational activities of the system. It will also need to examine how this work can support and complement the wider role the Outcome document envisages for the Economic and Social Council in ensuring follow-up and assessing progress of the outcomes of the major United Nations conferences and summits, including the internationally agreed development goals; and playing a major role in the overall coordination of funds, programmes and agencies, ensuring coherence among them and avoiding duplication of mandates and activities. 5. In all three areas, the study will need to encompass both organizational and funding issues, ranging from the duplication and overlap of work products across United Nations agencies, funds and programmes to prospects for joint, multi-year funding and programming arrangements. The broad issue of more predictable financing of the United Nations system—from the consolidated appeals process to the growth in non-core funding of funds and programmes to the appropriate role of as-

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sessed contributions—and its impact on existing systems and proposed reform will need to be a central element. 6. The overarching aim of the study is to seek recommendations on a process of rationalization that will maximize the available resources for relief and development programmes in the United Nations system while minimizing overhead and administrative costs. As such, the study will need to explore ways of fully exploiting synergies between the normative and analytical institutions and departments of the United Nations, such as the Department of Economic and Social Affairs and the United Nations Conference on Trade and Development (UNCTAD), and operational agencies. It will also need to address how the United Nations system works and can best exercise its comparative advantages with international partners, including the Bretton Woods institutions, the European Commission and other regional actors, donors, civil society and the private sector. While the primary focus will be on increasing impact at the country level, in making concrete proposals for improved management, coordination and effectiveness, it will need to make findings with regard to work both at United Nations headquarters, regional and country level. 7. In terms of recommendations, the study should seek to identify a short, medium and longer-term vision and benchmarks, thus laying a platform for an actionable plan of implementation rather than open-ended proposals. Change may need to occur in phases, with first initial proposals for rationalization of the current system without major structural changes; then proposals for preliminary restructuring of the current system to minimize duplication and overlap; and finally recommendations for comprehensive revitalization and restructuring of the United Nations operational role in environment, humanitarian and development work. D. CONSULTATION 8. The Outcome document calls for greater coordination between the governing boards of various operational agencies so as to ensure a more coherent policy in assigning mandates and allocating resources throughout the system. In this spirit—and to ensure wide acceptance and subsequent implementation of the findings—it will be essential for the Panel to consult widely with all stakeholders, including the management and governing boards of relevant agencies, funds and programmes, prior to submission of their final report to the Secretary-General. 1. Additional request from the Secretary-General: gender equality 9. In addition, the Secretary-General called upon the High-level Panel on United Nations System-wide Coherence in the areas of development, humanitarian assistance and the environment to review contribution of the United Nations system to achieving gender equality and to make recommendations on how gender equality perspectives can be better integrated into the work of the United Nations. In his recent report on the mandate review, the Secretary-General states that there is a need to move towards ‘improved clarity on institutional responsibilities and more concerted action in relation to gender equality. There is a need to assess the progress made across the system, the

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gaps and challenges remaining, and ways to improve outcomes.’ He requested the Panel ‘to include in its work an assessment of how gender equality, including through gender mainstreaming, can be better and more fully addressed in the work of the United Nations, particularly in its operational activities on the ground’ (A/60/733, para. 131). E. EXCERPT FROM GENERAL ASSEMBLY RESOLUTION 60/1 10.

General Assembly resolution 60/1 states, in part:

168. We recognize that the United Nations brings together a unique wealth of expertise and resources on global issues. We commend the extensive experience and expertise of the various development-related organizations, agencies, funds and programmes of the United Nations system in their diverse and complementary fields of activity and their important contributions to the achievement of the Millennium Development Goals and the other development objectives established by various United Nations conferences. 169. We support stronger system-wide coherence by implementing the following measures: Policy • Strengthening linkages between the normative work of the United Nations system and its operational activities • Coordinating our representation on the governing boards of the various development and humanitarian agencies so as to ensure that they pursue a coherent policy in assigning mandates and allocating resources throughout the system • Ensuring that the main horizontal policy themes, such as sustainable development, human rights and gender, are taken into account in decision-making throughout the United Nations Operational activities • Implementing current reforms aimed at a more effective, efficient, coherent, coordinated and better-performing United Nations country presence with a strengthened role for the senior resident official, whether special representative, resident coordinator or humanitarian coordinator, including appropriate authority, resources and accountability, and a common management, programming and monitoring framework • Inviting the Secretary-General to launch work to further strengthen the management and coordination of United Nations operational activities so that they can make an even more effective contribution to the achievement of the internationally agreed development goals, including the Millennium Development Goals, including proposals for consideration by Member States for more tightly managed entities in the fields of development, humanitarian assistance and the environment Humanitarian assistance • Upholding and respecting the humanitarian principles of humanity, neutrality, impartiality and independence and ensuring that humanitarian actors have safe and unhindered access to populations in need in conformity with the relevant provisions of international law and national laws • Supporting the efforts of countries, in particular developing countries, to strengthen their capacities at all levels in order to prepare for and respond rapidly to natural disasters and mitigate their impact

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• Strengthening the effectiveness of the United Nations humanitarian response, inter alia, by improving the timeliness and predictability of humanitarian funding, in part by improving the Central Emergency Revolving Fund • Further developing and improving, as required, mechanisms for the use of emergency standby capacities, under the auspices of the United Nations, for a timely response to humanitarian emergencies Environmental activities • Recognizing the need for more efficient environmental activities in the United Nations system, with enhanced coordination, improved policy advice and guidance, strengthened scientific knowledge, assessment and cooperation, better treaty compliance, while respecting the legal autonomy of the treaties, and better integration of environmental activities in the broader sustainable development framework at the operational level, including through capacity-building, we agree to explore the possibility of a more coherent institutional framework to address this need, including a more integrated structure, building on existing institutions and internationally agreed instruments, as well as the treaty bodies and the specialized agencies

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ANNEX TWO

PANEL MEMBERS Shaukat Aziz, Pakistan (Co-Chair) Prime Minister, Pakistan Luísa Dias Diogo, Mozambique (Co-Chair) Prime Minister, Mozambique Jens Stoltenberg, Norway (Co-Chair) Prime Minister, Norway Gordon Brown, MP, United Kingdom of Great Britain and Northern Ireland Chancellor of the Exchequer Mohamed T. El-Ashry, Egypt Senior Fellow, United Nations Foundation and Former Chairman and Chief Executive Officer, Global Environment Facility Robert Greenhill, Canada President, Canadian International Development Agency Ruth Jacoby, Sweden Ambassador of Sweden to Germany Ministry of Foreign Affairs, Sweden Former Director-General for Development Cooperation Ricardo Lagos, Chile Former President, Republic of Chile Louis Michel, Belgium European Commissioner for Development and Humanitarian Aid Benjamin W. Mkapa, United Republic of Tanzania Former President, United Republic of Tanzania Jean-Michel Severino, France Director General, French Development Agency Josette S. Sheeran, United States of America Under Secretary for Economic, Business and Agricultural Affairs, United States Department of State

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Keizo Takemi, Japan Senior Vice-Minister of Health, Labour and Welfare Former State Secretary for Foreign Affairs of Japan A. EX OFFICIO Lennart Båge President, International Fund for Agricultural Development Kemal Dervis Administrator, United Nations Development Programme

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ANNEX THREE

PANEL SECRETARIAT Adnan Z. Amin (Executive Director) Koen Davidse (Research Director) Moustapha Soumaré (Research Director) Kai Buchholz Mohamed El-Farnawany Fabienne Fon Sing Treena Huang Maaike Jansen Ruth McCoy Zazie Schafer

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ANNEX FOUR

CONSULTATIVE PROCESS 1. To ensure that its deliberations were informed by a broad range of perspectives from all key stakeholders, the Panel agreed that it was essential to undertake a wide-ranging, but focused consultative process, in accordance with the scope of the study outlined in the Panel’s terms of reference. Members considered that an inclusive consultative process was important not only to enrich the work of the Panel, but also to ensure the engagement and commitment of concerned stakeholders, a fundamental step to developing relevant and realistic recommendations and making sure that the Panel’s work would lead to genuine reform. 2. The consultative process resulted in the development of an analytical base and options for consideration by the Panel. Consultations drew on research and analytical capacity from inside and outside the United Nations system, and enabled contacts with Member States, the United Nations system, intergovernmental forums, international financial institutions, academia and civil society organizations. 3. Several Panel members participated in a series of consultations at the regional and country level, in Africa, Asia, Arab States and Latin America and the Caribbean. Each consultation undertook a broad assessment of experience from six countries within that region, bringing together United Nations country teams, Government representatives, regional organizations, donors and civil society. The objectives of these consultations included enhancing understanding among Panel members of the expected role of the United Nations at country level, canvassing information on good practices as well as major challenges to the United Nations country level coherence and allowing for the integration of the views of practitioners from each region into the overall deliberations of the Panel. In addition, one Panel member undertook country visits to Indonesia, Cambodia and Thailand to analyse challenges to a coherent and effective United Nations at the country level, identify good practices and assess the country level aspects of the issues to be addressed by the Panel. 4. Similarly, a number of thematic consultations were held on the environment, the resident coordinator system, the transition from relief to development, international financial institutions, business practices and funding. These consultations allowed for interaction between Panel members and key stakeholders, including experts, the United Nations system and civil society organizations—and for building an understanding of key challenges and the type of recommendations that could be put forward. A rich consultation was also held with civil society organizations, particularly focusing on sustainable development, gender equality, gender mainstreaming and human rights. 5. Panel members held consultative meetings with intergovernmental forums (the General Assembly and the Economic and Social Council), as well as smaller briefings for regional groupings (the Group of 77 and China, the European Union, the African Group and the Latin America and Caribbean Group). Panel members were also sensitive to their responsibility to build on the United Nations system’s own experience and aspirations, meeting with United Nations system organizations, through

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the Chief Executives Board for Coordination (CEB), as well as smaller groupings of organizations (in Rome, Vienna and Geneva), and the regional commissions. 6. The consultative process also benefited from meetings that aimed to provide input to the Panel’s work, including consultations hosted by permanent missions to the United Nations (Egypt and France) and United Nations inter-agency bodies (the CEB High-Level Committees on Programmes and Management). In addition, members of the Secretariat held a large number of bilateral meetings with Government representatives (from various ministries and/or permanent missions to the United Nations), United Nations system organizations and civil society organizations. 7. Furthermore, papers were commissioned that fed into the consultative process, including those on gender, business practices, funding, humanitarian assistance, the transition from relief to development and the United Nations institutional architecture. A. PANEL MEETING AND CONSULTATIONS, 2006 Meeting First Panel meeting Meeting with the General Assembly Meeting with the United Nations System Chief Executives Board for Coordination Consultation on the environment Regional consultation for Africa Consultation on the resident coordinator system Consultation on transition from relief to development Meeting with executive heads of Rome-based agencies Regional consultation for Asia Second Panel meeting Meeting with executive heads of Geneva-based agencies Regional consultation for Arab States Consultation with international financial institutions Consultation on business practices Consultation on funding Meeting of Sherpas in preparation for the third Panel meeting Consultation with civil society organizations Third Panel meeting Dialogue with the Economic and Social Council Meeting with the regional commissions Regional consultation for Latin America and the Caribbean Meeting of Sherpas in preparation for the fourth Panel meeting Fourth Panel meeting

Date 4 and 5 April 6 April 7 and 8 April

Venue New York New York Segovia

4 and 5 May 8 and 9 May 15 May 19 May 20 May

Nairobi Maputo Vienna Rome Rome

24and 25 May 1 and 2 June 3 June

Islamabad Geneva Geneva

20 and 21 June 26 June 26 June 29 June 30 June

Cairo Washington, D.C. Washington, D.C. London London

2 July 3 and 4 July 4 July 4 July 28 and 29 July

Geneva Geneva Geneva Geneva Bridgetown

17 and 18 August 31 August and 1 September

New York Oslo

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ACKNOWLEDGEMENTS The members of the High-Level Panel on United Nations System-Wide Coherence in the areas of development, humanitarian assistance and the environment would like to express sincere appreciation to their respective aides and advisers for their substantive contributions and dedication. The Panel’s work was made possible by generous financial contributions to a dedicated trust fund. In this regard, the Panel expresses its deep gratitude to the Governments of Belgium, Canada, Denmark, Finland, France, Germany, Ireland, Japan, Luxembourg, the Netherlands, Norway, Sweden, the United Kingdom of Great Britain and Northern Ireland and the United States of America. Contributions in-kind supporting the work of the Panel secretariat were gratefully received from the International Labour Organization (ILO), the Netherlands Ministry of Foreign Affairs, the United Nations System Chief Executives Board for Coordination (CEB) secretariat, the United Nations Development Group office, the United Nations Development Programme, the United Nations Environment Programme (UNEP), the United Nations Population Fund (UNFPA) and the World Food Programme (WFP). Particularly appreciation is extended to UNEP for its generous gesture in providing office space for the Panel secretariat. The Panel would also like to extend its gratitude to the Governments and United Nations organizations that hosted consultations and meetings, including: the Governments of Austria, Barbados, Egypt, Italy, Kenya, Mozambique, Norway, Pakistan, Spain and the United Kingdom; the Permanent Missions to the United Nations of Egypt, France and Norway in New York; UNEP, ILO, the United Nations Industrial Development Organization, the United Nations Foundation, the United Nations Office at Geneva, the World Bank, WFP, the World Health Organization, the World Tourism Organization and relevant resident coordinators and United Nations country teams, in particular those in Barbados, Egypt, Mozambique and Pakistan. The Panel’s work also benefited greatly from the views of a large number of Government, United Nations organization and civil society representatives and individual experts who provided valuable perspectives to the Panel in the course of its consultative process, in particular Donald Skerrett, who donated his time and expertise in the area of business practices. UNFPA kindly made available the services of Brendan O’Brien to support country-level consultations. The Panel’s work was further enriched by the many insightful written contributions that it received. The Panel would like to express its deep appreciation to the Secretary-General for having entrusted the members of the Panel with such an important task, and having brought together a remarkable mixture of perspectives and experience in order to formulate recommendations that we hope will effect a major and lasting change on the enhanced functioning of the United Nations system. We would also like to thank the Deputy Secretary-General for his valuable support throughout this process. Finally, the Panel expresses its sincere appreciation to members of the Panel secretariat for their extensive substantive and administrative support and commitment. All of these contributions are much appreciated and gratefully acknowledged.

DOCUMENT THREE

RECOMMENDATIONS CONTAINED IN THE REPORT OF THE HIGH-LEVEL PANEL ON UNITED NATIONS SYSTEM-WIDE COHERENCE IN THE AREAS OF DEVELOPMENT, HUMANITARIAN ASSISTANCE AND THE ENVIRONMENT UN SECRETARY-GENERAL REPORT A/61/836, 3 APRIL 2007 1. Introduction 1. In an ever more interdependent world, a coherent and strong United Nations is needed to meet an immense set of global challenges and a wide diversity of needs. The United Nations has a key role in ensuring progress towards the Millennium Development Goals and the other internationally agreed development goals, enabling countries to lead their development processes and helping to address such global challenges as disease, conflict and the environment, as well as to promote the realization of all rights. The United Nations must be flexible and coherent enough to respond to the operational and policy needs of developing countries, States experiencing conflict, stable low-income countries, emerging economies and developed countries. It should advocate global standards and norms and, in each country, should be focused on delivering results in line with country needs. 2. However, in the face of the preceding challenges, the United Nations is not optimally configured. The Organization urgently needs more coherence and synergy so it can perform as one and be more than the sum of its parts. It should utilize its unique universality, neutrality and capacity to operate in the security, development and humanitarian spheres. It should more successfully perform its roles of convener, standard-setter, advocate, expert, monitor, coordinator and manager of programmes. It should respond to the diverse needs of countries and perform as one at the country level, and have the governance, management and funding practices in place to support those efforts. 3. The recommendations contained in the report of the Secretary-General’s High-level Panel on System-wide Coherence in the areas of development, humanitarian assistance and the environment (A/61/583), ‘Delivering as one’, present an important opportunity to address those issues in a comprehensive and consistent manner, to ensure that the Organization can respond to the global challenges of the twenty-first century and play a full and effective role at the heart of the multilateral system. 4. Having reviewed and assessed the recommendations put forward by the HighLevel Panel, and in the light of the counsel provided by my predecessor, who commissioned the Panel’s work, and with the benefit of having engaged in a range of informal consultations on different aspects of the Panel’s report, I am pleased to signal my broad support for the principle of a stronger, more coherent United Nations and for the recommendations contained in the report. 5. The Panel’s report puts forward a vision of significantly enhanced United Nations system-wide coherence, which I perceive to be very much in line with the de-

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mands and objectives of Member States and the concerns they have and continue to voice. That vision is predicated on overcoming fragmentation and bringing together the system’s many assets in order to ‘deliver as one’ at all levels, but particularly at the country level, in line with the principle of country ownership. I believe that this is vital, and as I was quoted as saying in the report of the Panel, ‘the true measure of the success for the United Nations is not how much we promise but how much we deliver for those who need us most.’ 6. The Panel’s vision also gives due prominence to the need for the United Nations system to be results based and focused on performance and accountability. This imperative of efficiency, transparency and accountability is also very much at the heart of the demands from Member States for United Nations reform, and forms a cornerstone of my own priorities for the Organization. 7. The present report provides an overview of how I view the Panel’s recommendations in the context of the wider United Nations reform agenda and suggests elements of a process for consideration of ways to take forward intergovernmental consideration of the Panel’s report. 2. Consideration of the Panel’s recommendations 8. As noted by my predecessor, the Panel’s report is very rich in terms of analysis and recommendations and covers a great deal of ground. As he suggested in his transmittal note, the report merits a process of review and dialogue to build broadbased common understanding of its objectives, contents and proposals. Although the main consideration of and decision-making regarding the report’s recommendations should be done by the General Assembly, other policymakers and actors need to be brought into the discussion to build deeper understanding and ownership of the proposals. Those steps include consultations within the Economic and Social Council and with the governing bodies of organizations of the United Nations system. 9. I believe that the proposals in the report should be pursued as an integrated and coherent whole, as the report was crafted as such with many of the recommendations connected to one another. Arrangements for its review should ensure that the different proposals in the report are addressed on their own merits, with outcomes that reinforce each other and advance, together, the overall objectives set by the Panel. 10. The report should be considered within the context of a number of ongoing reform processes. Clearly, the Panel, in formulating its recommendations, was mindful of the other processes and the progress and obstacles they have encountered. In that regard, many of its recommendations are consistent with existing mandates for reform. In those cases, the United Nations system should move ahead to improve coherence without unnecessary delays so as to avoid duplication of effort. Other areas will require fuller discussions and deliberations. 11. One such process, which is highly relevant in terms of the Panel’s recommendations related to enhancing the coherence, effectiveness and efficiency of the United Nations at the country level, is the forthcoming triennial comprehensive policy review of operational activities for development of the United Nations system. A number of the Panel’s recommendations reaffirm and give renewed impetus to ongoing reform initiatives mandated by the 2001 and 2004 triennial comprehensive policy reviews,

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which constitute the policy framework agreed at the intergovernmental level for the operational activities of the United Nations system. The 2007 triennial comprehensive policy review provides an important opportunity to consider and take forward relevant recommendations of the Panel, including assessing progress with regard to the pilot ‘One Country Programmes’ recommended by the Panel. 12. Following consultations and at the request of interested Member States, the United Nations Development Group has initiated eight pilots in which the ‘One United Nations’ approach will be tested. The pilots are being undertaken on a voluntary basis under government leadership and will consist of a subset of about 20 joint offices that the Organization has committed to initiate under the triennial comprehensive policy review implementation plan approved by the Economic and Social Council. This exercise will provide an essential test of the application of the principles advocated by the Panel in different countries, and an analysis of the results and experiences will be presented to the relevant governing bodies at the end of the year. I have endorsed the present exercise and encouraged the Chair of the United Nations Development Group to proceed. A number of issues related to the development of the One United Nations approach will need to be considered, including the following: the central concept of national ownership; the authority and accountability of the United Nations Resident Coordinator; and the role of the United Nations Development Programme (UNDP), as manager of the resident coordinator system on the one hand and in its programmatic role on the other. There should be clear delineations of responsibilities in the form of an internal ‘firewall’ in UNDP. At the same time, the United Nations Development Programme’s programmatic role should be supportive of the overall cohesion effort and be strategic and cross-cutting rather than sector or project focused. There also needs to be more clarity with regard to what would constitute an effective unified budgetary framework at the country level. 13. Similarly, there is an existing process dealing with United Nations reform issues in the area of the environment, namely the General Assembly informal consultative process on the institutional framework for the United Nations environmental activities. The Panel was cognizant of this process and interacted with it, emphasizing that its recommendations were complementary and intended to provide an impetus to deliberations in that forum. Consultations on the environment-related recommendations put forward by the Panel could thus be taken up by the Assembly’s informal consultative process, as appropriate, taking into consideration relevant discussions and decisions in other intergovernmental forums, including the Global Ministerial Environmental Forum of the United Nations Environment Programme Governing Council, the Council of the Global Environment Facility and the conferences of the parties to relevant multilateral environmental agreements. I will be giving due attention, in the light of the intergovernmental process, to the Panel’s recommendation that I commission an independent and authoritative assessment of the current United Nations system of international environmental governance. 14. Progress is already being made with regard to the Panel’s recommendation that the United Nations System Chief Executives Board for Coordination (CEB) undertake a review of its functioning, in the light of experience gained since its establishment five years ago, with a view to improving its performance and accountability for system-wide coherence. At the session of the CEB held during the fourth quarter of

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2006, executive heads unanimously welcomed the broad thrust of the Panel’s recommendations and were united in their desire to improve coherence and coordination and enact the necessary system-wide reforms. The Director-General of the International Labour Organization, Juan Somavia, and the Director-General of the World Trade Organization, Pascal Lamy, have been entrusted with the task of leading the CEB review, seeking the full engagement of all executive heads. The intention is for the first session of the CEB, which I will chair, in April 2007, to consider a preliminary set of proposals for action to strengthen the effectiveness and relevance of that body as a responsive and transparent high-level mechanism under the chairmanship of the Secretary-General, geared to advancing the overall coherence and impact of the United Nations system. 15. The Panel’s recommendations are providing further impetus to reform measures on United Nations business practices, which are aimed at significantly enhancing performance and delivery of results. The recommendations are clearly very much in line with my priorities in such areas as transparency, accountability, efficiency and human resources development, including the promotion of staff mobility, and should be actively pursued in all relevant forums. Modernizing and achieving full compatibility on processes for resource planning, human resources, common services and evaluation are essential to turning the concepts of a more unified and coherent United Nations into reality. As much of the work falls within the purview of the CEB High Level Committee on Management, which encompasses representatives of all the agencies, funds and programmes of the United Nations system, a comprehensive progress report from CEB on its work in harmonizing business practices may be helpful to the General Assembly in facilitating its consideration of these matters. 16. Another area in which progress is already being made is with regard to certain recommendations in the humanitarian assistance section of the Panel’s report. With respect to food security, advanced discussions among the Rome-based agencies of the United Nations system have already taken place, with a view to developing proposals for the consideration of relevant intergovernmental bodies. However, more needs to be done to further strengthen the Organization’s role as a coordinator in terms of enhancing partnerships and its capacities to deal with the transition phase from relief to development. Moreover, more investment is urgently required in risk reduction and early warning, building on existing international initiatives to help mitigate or prevent natural disasters. The Panel makes good recommendations in those and other areas that should be further considered. 17. With regard to the Panel’s recommendations to strengthen the Organization’s gender architecture, I am in full agreement with the Panel’s assessment of the need to consolidate and strengthen several current structures in a dynamic United Nations entity focused on gender equality and women’s empowerment, which should mobilize forces of change at the global level and inspire enhanced results at the country level. It is also essential to stress that gender equality will remain the mandate of all United Nations entities. I will also continue to recruit competent women to become part of my senior team. 18. With regard to the proposal on gender equality and women’s empowerment, including the establishment of an Under-Secretary-General for Gender Equality and Empowerment of Women, who would lead a consolidated and strengthened United

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Nations gender architecture subject to approval by the relevant intergovernmental process, the United Nations system and many Member States are united in their conviction that the recommendations would contribute to overall efforts to achieve the goals of gender equality and empowerment of women. However, I will await the outcome of the substantive discussions and consultations by Member States on the proposal in order to be guided further by the intergovernmental process. I hope that Member States will be able to reach a positive early agreement on this proposal so that we can take it forward. 19. With regard to the Panel’s recommendations in the area of human rights, I am in full agreement with the Panel that human rights and other cross-cutting issues should be an integral part of United Nations activities. The United Nations High Commissioner for Human Rights, as the highest official of the United Nations responsible for human rights, should ensure the linkages between the normative work of the United Nations human rights mechanisms and operational activities. It is of utmost importance to support the Human Rights Council to make it into a truly effective body that has the credibility and authority to take forward the Human Rights agenda of the United Nations. 20. One area of the Panel’s report which merits in-depth intergovernmental consideration is that of governance. I urge Member States to give due consideration to the recommendations of the Panel in that regard. In the view of the Panel, their recommendations taken together would encompass a framework for a unified and coherent United Nations structure at the country level, matched by more coherent governance, funding and management arrangements at the centre as well as by consistency and coherence at the regional level. The report’s recommendations in this area constitute an important starting point for a process that requires further deliberation and discussion to develop a commonly owned vision that should enhance the coherence and efficiency of the intergovernmental structure and reflect the principle of country ownership. The preceding set of issues includes consideration of the proposals made by the Panel relating to the strengthening of the Economic and Social Council as the authoritative forum to ensure more efficient implementation of our common development agenda; the establishment of a Sustainable Development Board as an inclusive strategic overview and governance framework for the implementation of the ‘One United Nations’ approach at the country level; and ensuring support to the Sustainable Development Board, once it is created, through an inter-agency Development Policy and Operations Group, within the CEB framework. This Group could either replace the United Nations Development Group or be a subgroup of the United Nations Development Group explicitly given the task of supporting the new Board. I believe that the aim should be greater coherence at the Headquarters level to support coherence in the field. 21. With that in mind, I concur with the Panel’s conclusion that more detailed and specific proposals for further streamlining and consolidation would require a more indepth technical analysis than was feasible in the time frame available to the Panel. I will thus be giving due consideration to the Panel’s proposal that I establish an independent task force to further eliminate duplication within the United Nations system, and consolidate United Nations entities, where necessary, building on the foundations of the Panel’s work.

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22. I intend to work and consult closely with Member States, the President of the General Assembly and the relevant intergovernmental bodies, which will play a critical role in moving the report forward. In that regard, I have asked the Deputy Secretary-General to oversee and support implementation of the system-wide coherence reform agenda. The Deputy Secretary-General will work closely with relevant senior United Nations officials who will be at the disposal of Member States to facilitate discussion in their respective areas of responsibility. The United Nations system is conscious of the need to urgently take steps to enhance overall coherence and effectiveness, but is equally aware of the need to ensure that efforts to act on the Panel’s recommendations are guided by and respectful of the intergovernmental consideration of the Panel’s report.

DOCUMENT FOUR

QUESTIONS OF EQUITABLE REPRESENTATION ON AND INCREASE IN THE MEMBERSHIP OF THE SECURITY COUNCIL AND OTHER MATTERS RELATED TO THE SECURITY COUNCIL UN GENERAL ASSEMBLY DECISION A/DEC/62/557, 15 SEPTEMBER 2008 The General Assembly, Recalling its previous resolutions and decisions relevant to the question of equitable representation on and increase in the membership of the Security Council and other matters related to the Security Council, mindful of Chapter XVIII of the Charter of the United Nations and of the importance of reaching general agreement as referred to in resolution 48/26 of 3 December 1993, in resolution 53/30 of 1 December 1998 and in decision 61/561 of 17 September 2007 on the question of equitable representation on and increase in the membership of the Security Council and other matters related to the Council as well as the ratification process of any amendment to the Charter of the United Nations as stipulated in its Article 108, and taking note of the seven principles presented by the President of the General Assembly to serve as guiding principles for the advancement of the Security Council reform,1 (a) Takes note of the report of the Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters related to the Security Council on its work during the sixtysecond session of the General Assembly;2 (b) Notes with appreciation the Chairperson’s initiative and efforts in the process of a comprehensive reform of the Security Council, as well as the work done by the Vice-Chairpersons; (c) Decides, building on the progress achieved so far, in particular during its sixty-first and sixty-second sessions, as well as the positions of and proposals made by Member States to continue immediately to address within the Open-ended Working Group the framework and modalities in order to prepare and facilitate intergovernmental negotiations on the question of equitable representation and increase in the membership of the Security Council and other matters related to the Council. The Chairperson of the Open-ended Working Group would present the results of these consultations to an informal plenary session of the General Assembly, no later than 31 December 2008; (d) Also decides, taking note of the results achieved so far in the Open-ended Working Group, and building on the progress achieved so far, in particular during its sixty-first and sixty-second sessions, as well as the positions of and proposals made by Member States, to commence intergovernmental negotiations in informal plenary of 1

See A/62/PV.51. To be issued as Official Records of the General Assembly, Sixty-second Session, Supplement No. 47 (A/62/47). 2

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the General Assembly during its sixty-third session, but not later than 31 January 2009, based on proposals by Member States, in good faith, with mutual respect and in an open, inclusive and transparent manner, on the question of equitable representation and increase in the membership of the Security Council and other matters related to the Council, seeking a solution that can garner the widest possible political acceptance by Member States; (e) Further decides that the following form the basis for the intergovernmental negotiations: (i) The positions and proposals of Member States, regional groups and other Member States groupings; (ii) The five key issues: categories of membership, the question of the veto, regional representation, size of an enlarged Council and working methods of the Security Council, and the relationship between the Council and the General Assembly; (iii) The following documents: report of the Open-ended Working Group on its work during the sixty-first session of the General Assembly;3 General Assembly decision 61/561 and the report of the Open-ended Working Group on its work during the sixty-second session of the General Assembly;2 (f) Decides that the Open-ended Working Group should continue to exert efforts during the sixty-third session of the General Assembly aimed at achieving general agreement among Member States in the consideration of all issues relevant to the question of equitable representation on and increase in the membership of the Security Council and other matters related to the Council, taking into account the progress achieved from the forty-eighth to sixty-second sessions of the Assembly; (g) Also decides that the Working Group should submit a report to the General Assembly before the end of its sixty-third session, including any agreed recommendations.

3

Ibid., Sixty-first Session, Supplement No. 47 (A/61/47).

DOCUMENT FIVE

SYSTEM-WIDE COHERENCE UN GENERAL ASSEMBLY RESOLUTION A/RES/62/277, 15 SEPTEMBER 2008 The General Assembly, Recalling the consensus 2005 World Summit Outcome,1 Recalling also its consensus resolution 62/208 of 19 December 2007 on the triennial comprehensive policy review, Commending the pragmatic, transparent, balanced and inclusive approach taken by the Co-Chairs of the consultative follow-up process by the General Assembly on system-wide coherence, the Permanent Representatives of Ireland and the United Republic of Tanzania to the United Nations, to their work on behalf of the Assembly, which built upon the efforts of their distinguished predecessors, the Permanent Representatives of Barbados and Luxembourg to the United Nations, at the sixty-first session of the General Assembly, Having considered the paper on ‘Institutional options to strengthen United Nations work on gender equality and the empowerment of women’, which the Deputy Secretary-General provided to the President of the General Assembly on 23 July 2008 in response to a consensus request from Member States, Looking forward to the independent evaluation foreseen in its resolution 62/208, which will help it to form a comprehensive view of the ‘Delivering as one’ approach to the provision of development assistance through the United Nations system and, in the meantime, acknowledging the interim assessment of progress made and challenges remaining in this regard, as contained in the ‘Maputo Declaration’,2 issued in May 2008 by a number of least developed and middle income countries which have voluntarily embraced this approach, 1. Takes note of the report of the High-level Panel on United Nations Systemwide Coherence3 and the report of the Secretary-General containing his comments thereon;4 2. Welcomes the report presented by the Co-Chairs of the consultative follow-up process by the General Assembly on system-wide coherence, the Permanent Representatives of Ireland and the United Republic of Tanzania to the United Nations, to the President of the General Assembly on 21 July 2008,5 the conclusions and recommendations of which are contained in the annex to the present resolution; 3. Decides, accordingly, that the continuing and deepening intergovernmental work of the General Assembly on system-wide coherence will focus exclusively and in an integrated manner on ‘Delivering as one’ at country and regional levels, har1

See resolution 60/1. See A/63/85-E/2008/83. 3 See A/61/583. 4 A/61/836. 5 See A/63/362. 2

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monization of business practices, funding, governance, and gender equality and the empowerment of women; 4. Requests the Secretary-General, drawing on the resources and expertise of the United Nations system and building on the outcome of its triennial comprehensive policy review, to provide to Member States substantive papers on the issues of funding and governance, as those issues arise in the context of system-wide coherence, with a view to facilitating substantive action by the General Assembly during the sixty-third session; 5. Welcomes, in this overall context, the paper on ‘Institutional options to strengthen United Nations work on gender equality and the empowerment of women’, which the Deputy Secretary-General provided to the President of the General Assembly on 23 July 2008, and requests the Secretary-General to provide a further, detailed modalities paper in respect of the options set out in the Deputy Secretary-General’s paper, covering funding, governance structure, staffing, specific functions, relationship with the Commission on the Status of Women and other relevant bodies and, having regard to the totality of views expressed by Member States in informal plenary consultations on 8 September 2008, focusing in particular on the ‘composite entity’ option with a view to facilitating substantive action by the General Assembly during the sixty-third session; 6. Resolves, at the conclusion of its entire process on system-wide coherence, to review and take stock of all of its prior actions and deliberations in a single resolution or decision.

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ANNEX

CONCLUSIONS AND RECOMMENDATIONS OF THE CO-CHAIRS OF THE CONSULTATIVE FOLLOW-UP PROCESS BY THE GENERAL ASSEMBLY ON SYSTEM-WIDE COHERENCE, THE PERMANENT REPRESENTATIVES OF IRELAND AND THE UNITED REPUBLIC OF TANZANIA TO THE UNITED NATIONS 1. As the Co-Chairs for system-wide coherence at the sixty-second session of the General Assembly we have sought to conduct an open, transparent, balanced and inclusive process of consultations among the entire membership. Our aim has been to present a report that, by and large, will sit well with all parts of the Assembly in that all groupings of States should be able to feel that the report addresses seriously many of their principal priorities and concerns. In this way we have sought to facilitate a balanced and fair compromise outcome to the deliberations of the Assembly during the sixty-second session. 2. The following conclusions and recommendations flow from the present report overall, but are perhaps best seen in tandem with the introductory section. The landmark 2006 report of the High-level Panel on United Nations System-wide Coherence,3 while a very important contribution to the work of the General Assembly to increase coherence across the United Nations system, did not launch that work. The Millennium Summit and the 2005 World Summit as well as consensus positions of the Assembly, not least the triennial comprehensive policy reviews, constitute much of the bedrock for building further progress in this area. 3. Since the outset of the sixty-second session, the broad membership has signalled that the continuing efforts on system-wide coherence should focus on four priority areas, namely (a) the United Nations delivering as one at the country level with the related aspect of harmonization of business practices; (b) funding; (c) governance; and (d) gender equality and the empowerment of women. 4. The present report should be taken together with the paper on gender (in its institutional dimension) which is being provided by the Secretary-General to Member States in response to their request of 16 June 2008.6 5. As for ‘Delivering as one’, we have sought to provide the Member States with an accurate and up-to-date picture of the process as it is actually developing on the ground in upwards of thirty developing countries and not simply as it is perceived from afar. We have been helped in this by our on-the-ground consultations with Heads of State and Government, Cabinet ministers, parliamentarians, United Nations country teams, development partners and others in some eight developing countries. We have also conferred at length with United Nations agency heads in New York, Geneva, Rome, Paris and Vienna. We have taken careful note of the ‘Maputo Declaration’ issued in May 2008 by pilot and other developing countries, in which they formally re6 The paper, entitled ‘Institutional options to strengthen United Nations work on gender equality and the empowerment of women’, was provided on 23 July 2008.

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quest the Assembly to encourage them in the ‘Delivering as one’ approach that they have voluntarily embraced in partnership with the United Nations system. 6. Our conclusion is that the experience of ‘Delivering as one’ to date (that is to say, halfway through its second year) at the country level is clearly and preponderantly positive, even if a number of challenges remain to be fully addressed in regard to each of the ‘four ones’. We note that this view is shared by the large and growing number of developing countries which are applying the ‘Delivering as one’ approach and proactively moving towards implementing the consensus resolution on the triennial comprehensive policy review. They state that important principles are in fact being observed in practice, including national ownership and leadership and ‘no one size fits all’. Through the ‘Delivering as one’ approach United Nations country team activities are being aligned to an unprecedented degree with the national development strategies and policies of the developing countries concerned. Assistance is being delivered with greater effectiveness, savings are being realized and greater reductions in transaction costs are clearly in prospect. 7. At the same time the picture that emerges at present is interim in nature since the independent evaluation of ‘Delivering as one’, as foreseen by the 2007 triennial comprehensive policy review, will come only towards the end of 2009 and, in any event, concrete development outputs arising from a new way of doing business take longer than eighteen months to emerge definitively. 8. It seems to us clear that the Assembly ought to be in a position during the sixty-second session to give a positive political impetus to ‘Delivering as one’, thereby giving encouragement to those many developing countries which have voluntarily embraced this approach, and to enjoin the United Nations development system to continue to pursue it. Moving forward, it will be essential to safeguard the principles underlying ‘Delivering as one’, in particular that of enhancing national ownership and leadership in the design and implementation of United Nations development system support programmes at the country level. The international community should by the same token be encouraged to continue to respond positively through additional commitments where the combination of strong national leadership and an empowered United Nations country team, delivering as one, together generate a better-aligned and more effective United Nations programme of support. 9. For the most part, the funds, programmes and specialized agencies of the system, at the leadership level, have gradually become increasingly engaged with and supportive of the ‘Delivering as one’ approach. The atmosphere in which they collaborate within the United Nations System Chief Executives Board for Coordination under the chairmanship of the Secretary-General has been transformed for the better as they and their collaborators continue consideration of the implications of the ‘four ones’ (one programme, one budgetary framework and fund, one leader and one office) at the country level. At the same time, it is to be recommended that headquarters levels across the system empower the respective country-level agency representatives with much greater latitude, flexibility and encouragement to advance a more coherent and therefore more effective delivery of United Nations system assistance on the ground in line with the ‘Delivering as one’ approach. 10. In all of this, the particular situations affecting middle-income countries should receive adequate attention.

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11. Turning to the issue of funding in the context of system-wide coherence, there clearly need to be greater flows of and greater predictability in funding. In general, overall commitments made solemnly and repeatedly need to be implemented more faithfully. Commendation is due to those development partners which have made concrete contributions to advancing the ‘Delivering as one’ approach at the country level in response to the strategies, priorities, policies and plans of the developing countries concerned. At the same time, support for ‘Delivering as one’ at the country level must not be at the expense of core funding to agencies through their headquarters. Overall, there needs to be a significantly improved balance between core and non-core funding. Funds, programmes and specialized agencies should be invited, if necessary through changes in statute, rules and/or regulations, to give effect to the consensus view in the General Assembly that savings realized at the country level ought to be ploughed back into programmatic development work in the countries where the savings are realized. In this and in other ways, ‘Delivering as one’ must deliver more. 12. As for intergovernmental governance at the central level, we have detected no palpable appetite in the General Assembly for establishing new intergovernmental bodies, including the putative Sustainable Development Board which was recommended by the High-level Panel. At the same time the new realities emerging from a growing number of developing countries applying the ‘Delivering as one’ approach at the country level will need to be accommodated and addressed more effectively by the existing boards and not least by the Economic and Social Council. In the light of the ongoing and emerging nature of the ‘Delivering as one’ approach, it may be necessary to continue and to deepen discussion of these issues during the sixty-third session. 13. If, in that context, the Assembly focuses first on the functions that need to be discharged centrally and intergovernmentally in the ‘Delivering as one’ approach, it will perhaps then be easier to address the question of which institutions, as these continue to adapt, are best placed to discharge the functions in question. 14. We also believe that the United Nations system and the Bretton Woods institutions ought to be consistently encouraged to develop, in a pragmatic manner, a far greater degree of cooperation and collaboration in the context described in the present report. Some progress is already being made. This needs to be developed and enlarged. 15. As for gender equality and the empowerment of women, we recommend that the Assembly be invited to address the matter, including in the light of the SecretaryGeneral’s paper on the institutional dimension,6 in open, informal plenary consultations at an early opportunity, perhaps early in September. During the sixty-second session the Member States have advanced together, by agreement, in their consideration of the issue of gender equality and women’s empowerment. With assistance from the Secretary-General, they have identified critical gaps in the way the system assists Member States in implementing globally agreed mandates and their own internationally made commitments in this area. With further open and genuine discussion the Assembly may be in a position, before the conclusion of its sixty-second session, to signal in general terms, but nevertheless clearly, which institutional option or combination of options, perhaps with adjustments, it wishes to pursue. Detailed working through of such an agreed approach could then be taken up and completed at the sixtythird session. We have the very strong impression that no Government, whether for substantive or ‘tactical’ reasons, would wish to stand in the way of a consensus to ad-

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vance the issue of gender equality and the empowerment of women through a measured but significant step forward. 16. We believe that in the light of the present report and the Secretary-General’s options paper on gender equality and the empowerment of women (in its institutional aspect)6 Member States ought to be equipped for decision-making during the sixtysecond session. With these substantive elements in hand, Member States are also better placed to weigh the format of the decision-making of the Assembly. 17. In the first instance, and on the basis of the foregoing report and these conclusions, Member States may, during the sixty-second session, wish to address, perhaps in a package decision, the four core priority areas listed in paragraph 3 above, which they have highlighted throughout. 18. The same decision could signal that henceforth, in the context of intergovernmental discussion on system-wide coherence, the Assembly will focus exclusively on these priority areas and will exclude from this context the issues of environment/environmental governance, humanitarian assistance and human rights, in line with the considerations set out in the present report.

DOCUMENT SIX

HUMAN RESOURCES MANAGEMENT UN GENERAL ASSEMBLY RESOLUTION A/RES/63/250, 24 DECEMBER 2008 TABLE OF CONTENTS

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13.

Human resource management reform .......................................................... Contractual arrangements and harmonization of conditions of service ....... Recruitment and staffing .............................................................................. National competitive examinations.............................................................. Accountability .............................................................................................. Performance appraisal system...................................................................... Mobility........................................................................................................ Career development and support.................................................................. Measures to improve equitable geographical representation/composition of the Secretariat...................................................................................... Gender representation .................................................................................. Consultants, individual contractors, gratis personnel and employment of retired staff............................................................................................... Report of the Ethics Office .......................................................................... Other matters................................................................................................

Page 360 361 364 365 366 366 367 367 368 370 370 371 371

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The General Assembly, Recalling Articles 8, 97, 100 and 101 of the Charter of the United Nations, Recalling also its resolutions 49/222 A and B of 23 December 1994 and 20 July 1995, 51/226 of 3 April 1997, 52/219 of 22 December 1997, 52/252 of 8 September 1998, 53/221 of 7 April 1999, 55/258 of 14 June 2001, 57/305 of 15 April 2003, 58/296 of 18 June 2004, 59/266 of 23 December 2004, 60/1 of 16 September 2005, 60/260 of 8 May 2006, 61/244 of 22 December 2006, 61/276, section VIII, of 29 June 2007, 62/238, section XXI, of 22 December 2007 and 62/248 of 3 April 2008, as well as its other relevant resolutions and decisions, Reaffirming that the staff of the United Nations is an invaluable asset of the Organization, and commending its contribution to furthering the purposes and principles of the United Nations, Paying tribute to the memory of all staff members who have lost their lives in the service of the Organization, Having considered the relevant reports on human resources management submitted to the General Assembly,1 Having also considered the report of the Office of Internal Oversight Services on an in-depth evaluation of the Office of Human Resources Management2 and the addendum to the report of the International Civil Service Commission for 2006,3 Having further considered the related reports of the Advisory Committee on Administrative and Budgetary Questions,4 Endorses the conclusions and recommendations contained in the reports of the Advisory Committee on Administrative and Budgetary Questions,4 subject to the provisions of the present resolution; 1. Human resources management reform 1. Emphasizes the fundamental importance of human resources management reform in the United Nations as a contribution to the strengthening of the international civil service, recalls, in this context, the reports of the International Civil Service Commission, and reaffirms its commitment to the implementation of these reforms; 2. Stresses the importance of a meaningful and constructive dialogue between staff and management, in particular on human resources-related issues, and calls upon both parties to intensify efforts to overcome differences and to resume the consultative process; 3. Expresses concern over the fact that staff representatives from New York and Geneva have withdrawn from participation in the Staff-Management Coordination 1 A/61/206, A/61/694 and Add.1, A/61/732, A/61/806 and Add.1, A/61/822, A/61/823, A/61/850, A/61/861, A/61/957, A/61/1029, A/62/185, A/62/186, A/62/215, A/62/274, A/62/285, A/62/315, A/62/707 and Add.1, A/62/845 and Add.1, A/62/890, A/63/132, A/63/189, A/63/204, A/63/208, A/63/282, A/63/285, A/63/290, A/63/298, A/63/301 and A/63/310 and Add.1–3. 2 A/63/221. 3 Official Records of the General Assembly, Sixty-first Session, Supplement No. 30, addendum (A/61/30/Add.1). 4 A/62/7/Add.14 (for the final text, see Official Records of the General Assembly, Sixty-second Session, Supplement No. 7A) and A/63/526 and Corr.1.

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Committee, and reiterates its call to the staff representatives from New York and Geneva and management to intensify efforts to overcome differences and to engage in a consultative process; 4. Requests the Secretary-General to take advantage of the existing mechanisms for conflict resolution and mediation as deemed useful and appropriate in order to facilitate renewed dialogue between staff and management; 5. Recalls section I, paragraphs 1 and 3, of its resolution 61/244, bearing in mind article VIII of the Staff Regulations, and requests the Secretary-General to submit proposals to the General Assembly at its sixty-fifth session to review the staffmanagement mechanism for addressing human resources management issues, in consultation with relevant bodies; 6. Takes note of the report of the Office of Internal Oversight Services on an indepth evaluation of the Office of Human Resources Management,2 in particular the recommendations set out in section VI thereof; 7. Requests the Secretary-General, taking into account paragraph 22 of the report of the Advisory Committee on Administrative and Budgetary Questions,5 to ensure that measures to identify and promote future leaders have clear criteria and mechanisms for selection, and that they are implemented within the framework of the staff selection system, and to provide information on their precise financial implications; 2. Contractual arrangements and harmonization of conditions of service 1. Stresses the need for rationalization of the current United Nations system of contractual arrangements, which lacks transparency and is complex to administer; 2. Approves the new contractual arrangements which would comprise three types of appointments (temporary, fixed-term and continuing), under one set of Staff Rules, effective 1 July 2009, as set out in its resolution 62/248 and subject to the provisions of the present resolution; 3. Requests the Secretary-General not to appoint any staff to continuing contracts before 1 January 2010 pending consideration by the General Assembly of the additional information concerning the implementation of continuing contracts; 4. Also requests the Secretary-General to report to the General Assembly at its sixty-fourth session on the following issues with a view to the implementation of a system for the continuing appointment regime by 1 January 2010: (a) Rigorous and transparent procedures for granting continuing appointments to staff, including the criteria for eligibility, the relationship with disciplinary measures and the central management of conversions; (b) The role of the performance appraisal system and options for strengthening it to ensure that staff members considered for continuing appointments have demonstrated the highest standards of efficiency, competence and integrity, taking into account any deliberations of the International Civil Service Commission on this issue;

5

A/63/526 and Corr.1.

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(c) The financial and management implications of converting appointments from fixed-term to continuing appointments, and the possible establishment of a ceiling on the number of conversions; (d) Analysis of the implications of the proposed continuing appointments for the system of geographical ranges; (e) Rigorous and transparent procedures to review the performance of staff and the continuing need for functions when determining the granting and termination of an appointment of a staff member, as well as clear and firm lines of accountability, to fully ensure that the granting and termination of continuing contracts is undertaken in a fair and transparent manner, with full regard to due process and the rights of staff; (f) Options for ensuring that successful candidates from national competitive examinations and language staff are not disadvantaged by proposed changes; (g) Analysis of the implications for Junior Professional Officers; (h) The potential ramifications of the proposed amendment to staff regulation 9.1; 5. Decides to continue to suspend until 30 June 2009 the application of the fouryear limit for appointments of limited duration under the 300 series of the Staff Rules in peacekeeping operations; 6. Authorizes the Secretary-General, bearing in mind paragraph 5 of the present section, to reappoint under the 100 series of the Staff Rules those mission staff whose service under 300-series contracts has reached the four-year limit by 30 June 2009, provided that their functions have been reviewed and found necessary and that their performance has been confirmed as fully satisfactory; 7. Decides that temporary appointments are to be used to appoint staff for seasonal or peak workloads and specific short-term requirements for less than one year but could be renewed for up to one additional year when warranted by surge requirements and operational needs related to field operations and special projects with finite mandates; 8. Also decides that staff on temporary contracts would be eligible to receive only the following benefits and allowances: post adjustment; rental subsidy; hazard pay; hardship allowance; the daily subsistence allowance portion of the assignment grant; leave (depending on the length of contract); home leave (per classification of duty station); and limited shipment allowance; 9. Requests, in this regard, the Secretary-General to provide information on the circumstances in which the renewal of a temporary appointment for up to one additional year could be granted; 10. Decides that the field staff serving on 300-series appointments of less than four years who are not performing temporary functions are to be given missionspecific fixed-term contracts until such time as they have gone through a competitive process subject to the review of a central review body; 11. Also decides that staff on 100-, 200- and 300-series contracts serving in locations other than peacekeeping operations and special political missions for a cumulative period of more than one year who are not performing temporary functions are to be given fixed-term contracts until such time as they have gone through a competitive process subject to the review of a central review body;

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12. Requests the Secretary-General to submit to the General Assembly for consideration at the first part of its resumed sixty-third session draft regulations by which the streamlined system of contracts could be implemented; 13. Also requests the Secretary-General to evaluate the impact of the implementation of the new system of contracts, including its financial implications, and to report to the General Assembly on this matter no earlier than at its sixty-seventh session; 14. Further requests the Secretary-General to discontinue the practice of assigning staff from Headquarters to missions on a travel status basis for a period of more than three months; 15. Recalls section V, paragraph 2, of its resolution 51/226, in which it requested the Secretary-General to make efforts to achieve the level of 70 per cent of permanent appointments in posts subject to geographical distribution; 16. Encourages the Secretary-General, in accordance with legislative mandates, to ensure a judicious mix of career and fixed-term appointments, so as to have an appropriate balance between institutional memory, long-term commitment and independence and the ability to bring in fresh insight and expertise, and to dismiss nonperforming staff; 17. Recognizes that an effective and credible performance appraisal system is an important element in the implementation of the new contractual arrangements; 18. Acknowledges the need to centrally manage the conversion from fixed-term to continuing appointments on a competitive and transparent basis; 19. Decides to revert at its sixty-fifth session to the proposal of the SecretaryGeneral to create a cadre of civilian career peacekeepers in the light of the lessons learned from the implementation of the new arrangements for contracts and conditions of service; 20. Stresses that the fair and equitable implementation of new contractual arrangements will be directly linked to the effective functioning of the new system of administration of justice; 21. Decides that there shall be no expectations, legal or otherwise, of renewal or conversion of a fixed-term contract, irrespective of the length of service, and requests the Secretary-General to reflect this provision in the rules and regulations as well as offers and letters of appointment; 22. Also decides that, in the context of the Secretary-General’s proposal, ‘in the interest of the good administration of the Organization’ is to be interpreted principally as a change or termination of a mandate; 23. Reaffirms that, while continuing appointments are not implemented, successful candidates from national competitive recruitment examinations and staff from language services after two years of probationary service will continue to be granted open-ended appointments according to the current practice; 24. Decides that the period of service of Junior Professional Officers shall not be taken into account as part of the requisite period of service for a continuing appointment; 25. Notes that the International Civil Service Commission will be reviewing all separation payments, including the possibility of an end-of-service bonus; 26. Decides to designate existing established missions as family missions and existing special missions as non-family missions, effective 1 July 2009;

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27. Also decides that all staff appointed or assigned to non-family missions shall be installed in accordance with conditions of the United Nations common system, without the special-operations approach; 28. Requests the International Civil Service Commission to keep the issue of United Nations common system conditions of service in the field under review; 29. Decides to keep the issue of United Nations common system conditions of service in the field under review; 30. Approves the introduction of a rest and recuperation scheme to include travel time, appropriate to the location, but no payment of travel to the staff member, for internationally recruited staff members in United Nations field operations to replace the occasional recuperation break, effective 1 January 2009; 3. Recruitment and staffing 1. Reiterates that the Secretary-General has to ensure that the highest standards of efficiency, competence and integrity serve as the paramount consideration in the employment of staff, with due regard to the principle of equitable geographical distribution, in accordance with Article 101, paragraph 3, of the Charter of the United Nations; 2. Reaffirms that measures on meeting organizational mandates, accountability targets and indicators of achievement, including with respect to geographical distribution of staff and gender balance, contained in human resources action plans and recruitment procedures, including selection decisions, shall fully correspond to the provisions contained in Article 101, paragraph 3, of the Charter as well as in relevant General Assembly mandates; 3. Notes that the upcoming demographic transition of United Nations staff will present organizational challenges in terms of staff continuity and possible loss of institutional knowledge as well as opportunities to rejuvenate the Organization; 4. Emphasizes the need for strategic workforce planning to proactively support the human resources needs of the United Nations, and in this regard urges the Secretary-General to pursue efforts in this area as a matter of priority; 5. Urges the Secretary-General to ensure that outreach activities cover positions both at Headquarters and in the field; 6. Recognizes the importance of speeding up the recruitment and staffing process, in accordance with Article 101, paragraph 3, of the Charter, which will ensure that staff are diverse, multi-skilled and versatile; 7. Acknowledges the need to simplify the current reference check for speeding up the recruitment process, and requests the Secretary-General to review the procedure and take necessary actions as soon as possible; 8. Decides that, in order to ensure the transparency of the recruitment process, all specific vacancy announcements shall continue to be advertised; 9. Requests the Secretary-General to continue to ensure equal treatment of candidates with equivalent educational backgrounds during the recruitment process, taking fully into account that Member States have different educational systems and that no education system shall be considered the standard to be applied to the Organization;

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10. Invites the Secretary-General, when appointing officials at the D-1 and D-2 levels in departments of the Secretariat that provide backstopping and/or policy guidance to field missions, to fully consider the relevant field experience of the candidates, as one of the highly desirable appointment criteria; 11. Underlines that the upgraded electronic staff selection system of the United Nations must be clear, simplified, user-friendly and accessible to potential candidates and that regular monitoring must be in place to ensure transparency and nondiscrimination, and requests the Secretary-General to report thereon to the General Assembly at its sixty-fifth session; 12. Recognizes that pre-screened rosters can considerably expedite the recruitment process in the United Nations; 13. Notes that the existing rosters for Headquarters and established duty stations under the current staff selection system have design flaws and have not been utilized widely to fill vacancies; 14. Acknowledges the necessity of ensuring transparency and accountability with respect to recruitment of general temporary assistance and consultants; 15. Reaffirms section II, paragraph 6, of its resolution 61/244, in which it decided to retain the criterion of geographical status in the staff selection system as one of the key elements to ensure geographical balance at each level for posts subject to geographical distribution; 16. Requests the Secretary-General to ensure that all anticipated and immediate vacancies are properly advertised and filled quickly, and to report on the success of this endeavour to the General Assembly at its sixty-fifth session; 17. Emphasizes the importance of the participation of staff representatives in the work of the central review bodies, and requests the Secretary-General and invites staff representatives to engage in a consultative process with a view to resuming the participation of staff representatives in the work of the central review bodies; 18. Requests the Secretary-General to include analysis of the implementation of the human resources action plans in the context of the report on the composition of the Secretariat; 19. Recognizes the added value that a redesign panel could bring to the reform of the recruitment and staffing processes; 20. Decides to revert to the issue of establishing a redesign panel for this purpose at its sixty-fifth session; 4. National competitive examinations 1. Reaffirms that national competitive examinations are the source of recruitment for P-2 posts subject to geographical distribution in order to reduce non-representation and underrepresentation of Member States in the Secretariat; 2. Requests the Secretary-General to submit to the General Assembly, for consideration at its sixty-fifth session, a feasibility study, building on audit reports, to determine whether the broadening of the scope of the national competitive examination would serve to further strengthen the capacity of the Organization for programme delivery, as recommended by the Advisory Committee on Administrative and Budgetary Questions in its report;5

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3. Notes with concern that a large number of candidates who have passed national competitive examinations remain on the roster for years; 4. Requests the Secretary-General to ensure the expeditious placement of successful candidates from national competitive examinations; 5. Welcomes the enhanced efforts of the Secretary-General to centrally manage the placement of successful candidates from national competitive examinations, and requests him to intensify these efforts and to report thereon to the General Assembly at its sixty-fifth session; 6. Requests the Secretary-General to report to the General Assembly at its sixtyfifth session on the implementation of the recommendations of the Joint Inspection Unit aimed at reducing the length of the national competitive recruitment examination process and improving the national competitive recruitment examination roster management, as well as setting time frames for completion of the process; 7. Also requests the Secretary-General, in his capacity as Chairman of the United Nations System Chief Executives Board for Coordination, to further cooperate within the framework of the Human Resources Network, making better use of national competitive recruitment examinations and existing rosters, and improving inter-agency mobility; 8. Recognizes the importance of the Secretary-General providing career development opportunities and support, including enhancing mobility for all staff, including those recruited from national competitive examinations; 5. Accountability 1. Recalls its resolution 61/244 and all other relevant resolutions on human resources management, including geographical distribution and gender representation in posts, and stresses the accountability of the Secretary-General for implementation and the concrete results obtained for these important principles and mandates; 2. Emphasizes that robust and proactive monitoring is essential at all levels, and requests the Secretary-General to ensure that the Office of Human Resources Management continues to strengthen its monitoring of delegated authority for human resources management, including compliance with geographical and gender targets and the prompt filling of vacancies; 3. Notes that the senior managers’ compacts are meant to improve the management of the Organization, inter alia, by increasing accountability and transparency at the senior level, and in this regard urges the Secretary-General to implement measures that adequately address the performance of senior managers, especially with regard to achieving goals and targets; 6. Performance appraisal system 1. Emphasizes that a credible, fair and fully functioning performance appraisal system is critical to effective human resources management policies; 2. Expresses concern over the lack of credibility and effectiveness of the current performance appraisal system, and stresses the need for it to accurately reflect the full

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range of performance, in order to be able to reward staff for excellent performance and impose sanctions for underperformance and to strengthen the link between performance and career progression, in particular for those staff members in managerial positions; 3. Notes the intention of the Secretary-General to begin utilizing 360-degree performance appraisals, and requests the Secretary-General to report to the General Assembly at its sixty-fifth session on how this can be further implemented; 4. Requests the Secretary-General to review the current performance appraisal system in consultation with staff through the appropriate channels, and to report thereon to the General Assembly at its sixty-fifth session; 7. Mobility 1. Reaffirms section VIII of its resolution 59/266; 2. Stresses that the purpose of enhancing mobility is to improve the effectiveness of the Organization and to foster the skills and capacity of staff; 3. Decides to review the regulations and rules of the Organization relating to the exercise by the Secretary-General of his authority to assign and deploy staff according to the operational needs of the Organization, and requests him to submit proposals in this regard to the General Assembly at its sixty-fifth session; 4. Regrets that the Secretary-General’s mobility policies failed to achieve their intended purposes; 5. Notes the intention of the Secretary-General as set out in his report6 to suspend the managed mobility programmes upon completion of the D-1/D-2 exercise, in order for a review to be undertaken, including on the maximum period of occupancy of post and lessons learned, with a view to developing proposals on the mobility policy, taking into account recommendations of the Task Force on Human Resources Management, in consultation with all relevant stakeholders, including staff associations, and requests him to report thereon to the General Assembly at its sixty-fifth session in the context of his report on human resources management, with an analysis of cost and benefits, bearing in mind paragraph 46 of the report of the Advisory Committee on Administrative and Budgetary Questions;5 6. Requests the Secretary-General to submit proposals aimed at encouraging voluntary mobility of staff in the context of the review of the mobility policy, without prejudice to the different needs of duty stations and the field; 7. Emphasizes that the scope of the mobility policy should be well defined; 8. Career development and support 1. Requests the Secretary-General, in complying with paragraph 17 of the report of the Advisory Committee on Administrative and Budgetary Questions,5 to make all possible efforts within existing resources; 6

A/63/208.

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2. Reaffirms the importance of defining the target and strategy of training and career development; 3. Requests the Secretary-General to make full use of the grade structure and to submit a concrete proposal to the General Assembly at the sixty-fifth session on how and where P-1 positions might be used more effectively; 4. Also requests the Secretary-General to submit proposals on a strategy to implement an efficient and effective training and professional development programme in the context of the budget submission for the biennium 2010–2011; 5. Further requests the Secretary-General to ensure that each vacancy announcement identifies accurately the skills, education and experience required for the position; 6. Recognizes the core role played by programme managers in career development and support, and requests the Secretary-General to strengthen the evaluation of their managerial skills and their performance in fostering staff career development; 9. Measures to improve equitable geographical representation/composition of the Secretariat 1. Recalls its resolution 42/220 A of 21 December 1987, by which it introduced the current system of desirable ranges; 2. Requests the Secretary-General to continue his ongoing efforts to attain equitable geographical distribution in the Secretariat and to ensure as wide a geographical distribution of staff as possible in all departments, offices and levels, including the Director level and higher levels, of the Secretariat; 3. Recalls section X, paragraph 12, of its resolution 61/244, and expresses concern over the increase that has taken place in the number of unrepresented and underrepresented Member States since 2006; 4. Regrets the current insufficient accountability of heads of departments in achieving equitable geographical distribution in the Secretariat; 5. Welcomes the continuing efforts of the Secretary-General to improve the situation of unrepresented and underrepresented Member States and of those which might become underrepresented under the system of desirable ranges; 6. Notes the analysis of the level of underrepresentation in the reports of the Secretary-General on the composition of the Secretariat;7 7. Reiterates its request to the Secretary-General to take all necessary measures to ensure, at the senior and policymaking levels of the Secretariat, equitable representation of Member States, especially those with inadequate representation at those levels, and to continue to include relevant information thereon in all future reports on the composition of the Secretariat; 8. Reiterates its requests to the Secretary-General to present proposals to effectively increase the representation of developing countries in the Secretariat, and to report thereon to the General Assembly at its sixty-fifth session;

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9. Welcomes the efforts of the Secretary-General to set specific targets throughout the Organization in order to increase recruitment from unrepresented and underrepresented Member States; 10. Considers that encouragement of recruitment from unrepresented and underrepresented Member States as well as gender balance targets shall not disallow other qualified candidates from competing; 11. Reiterates its request to the Secretary-General to ensure, through the Management Performance Board, the monitoring of the implementation of human resources action plans, including the principle of equitable geographical distribution in the Secretariat at all levels, as set out in relevant General Assembly resolutions, and the verification of the effective application of measures of transparency and accountability, including in the selection, recruitment and placement processes; 12. Reiterates its request as contained in section X, paragraph 8, of its resolution 61/244; 13. Recalls paragraph 22 of its resolution 62/250 of 20 June 2008, and requests the Secretary-General to ensure the proper representation of troop-contributing countries in the Department of Peacekeeping Operations and the Department of Field Support, of the Secretariat, taking into account their contribution to United Nations peacekeeping; 14. Re-emphasizes that the system of geographical ranges was designed to apply to countries rather than to regions or groups; 15. Recalls its request to the Secretary-General to reduce, to the extent possible, the number of unrepresented and underrepresented Member States in the Secretariat by 30 per cent by 2010, compared to the level in 2006, and requests him to report to the General Assembly thereon, as appropriate, in the context of his report on human resources management; 16. Reaffirms that the system of desirable ranges is the mechanism for recruitment of staff to posts subject to geographical distribution, in accordance with Article 101, paragraph 3, of the Charter; 17. Recognizes that considerable change has taken place in the composition and the number of staff of the global United Nations Secretariat in the past two decades, recalls the reports of the Secretary-General,8 and requests him to submit to the General-Assembly, at its sixty-fifth session, proposals for a comprehensive review of the system of desirable ranges, with a view to establishing a more effective tool to ensure equitable geographical distribution in relation to the total number of staff of the global United Nations Secretariat; 18. Requests the Secretary-General to gradually incorporate within his report on the composition of the Secretariat the overall number of staff, regardless of sources of funding, on contracts of one year or more; 19. Reiterates its request as contained in section X, paragraph 15, of its resolution 61/244, and recalls section II, paragraph 2, of its resolution 42/220 A;

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A/58/767 and A/59/724.

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10. Gender representation 1. Reaffirms the goal of 50/50 gender distribution in all categories of posts within the United Nations system, especially at senior and policymaking levels, with full respect for the principle of equitable geographical distribution, in conformity with Article 101 of the Charter, and regrets that progress towards attaining this goal has been slow; 2. Expresses concern at the continuing low proportion of women in the Secretariat, in particular the low proportion of women from developing countries, especially at the senior levels, and stresses that, in the recruitment process, the continuing lack of representation or underrepresentation of women from certain countries, in particular from developing countries, should be taken into account and that those women should be accorded equal opportunities, in full conformity with relevant resolutions; 3. Notes with concern that, in posts subject to the system of desirable ranges, only 33 women from developing countries were recruited between 1 July 2007 and 30 June 2008 among the 96 women appointed during that period; 4. Requests the Secretary-General to increase his efforts to attain and monitor the goal of gender parity in the Secretariat, in particular at senior levels, and in this context to ensure that women, especially those from developing countries and countries with economies in transition, are appropriately represented within the Secretariat, and to report thereon to the General Assembly at its sixty-fifth session; 5. Notes the renewed effort the Secretary-General has made towards attaining this goal, particularly the decision to design and implement a forward-looking strategy under the leadership of the Deputy Secretary-General, and encourages him to further strengthen these efforts; 6. Requests the Secretary-General, in the context of attaining this goal, to develop and implement recruitment targets, time frames for meeting those targets and accountability measures; 7. Encourages Member States to support the efforts of the Secretary-General by identifying more women candidates and encouraging them to apply for appointment to positions in the Secretariat and by creating awareness among their nationals, in particular women, of vacancies in the Secretariat; 11. Consultants, individual contractors, gratis personnel and employment of retired staff 1. Requests the Secretary-General to adhere to existing guidelines on the selection and recruitment of consultants and individual contractors; 2. Expresses concern over the increase in the use of consultants, especially in the core activities of the Organization, stresses that the use of consultants should be governed by the relevant resolutions of the General Assembly, in particular resolution 53/221, section VIII, and that they should drawn from the widest possible geographical basis, and requests the Secretary-General to make the greatest possible use of in-

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house capacity and to report to the Assembly at its sixty-fifth session on the measures taken to that effect; 3. Reiterates its concern that the continuous trend of hiring staff retirees for extended periods of time increased in the last biennium; 4. Reiterates that employment of retirees in decision-making positions should occur only in exceptional circumstances; 5. Requests the Secretary-General to include, in future reports on the employment of retirees, analysis on reasons for patterns and trends that emerge from data presented; 12. Report of the Ethics Office 1. Notes with appreciation the contributions of the Ethics Office to promoting integrity within the Organization; 2. Welcomes the establishment of the United Nations Ethics Committee; 3. Requests the Secretary-General to clarify the roles of the Ethics Office, the Office of the Ombudsman, the Office of Internal Oversight Services and other related offices, and to report the findings, as well as the measures taken to avoid overlapping of mandates, to the General Assembly at its sixty-fifth session; 4. Also requests the Secretary-General to discuss with the executive heads of the specialized agencies, funds and programmes, within the framework of the United Nations System Chief Executives Board for Coordination, areas of possible cooperation and cost savings on ethics-related matters; 5. Further requests the Secretary-General to include in his report on the activities of the Ethics Office, information on the activities of the Ethics Committee, including a review of any complex ethics issues dealt with by the Committee, if deemed relevant; 13. Other matters 1. Notes with concern that many disciplinary cases have not been completed in a reasonable time, and requests the Secretary-General to include in his annual report information on measures taken to increase the number of cases closed; 2. Invites the Sixth Committee to consider the legal aspects of the report of the Secretary-General entitled ‘Implementation of the Regulations Governing the Status, Basic Rights and Duties of Officials other than Secretariat Officials and Experts on Mission’9 without prejudice to the role of the Fifth Committee as the Main Committee of the General Assembly responsible for administrative and budgetary matters; 3. Requests the Secretary-General to report to the General Assembly at its sixtyfifth session on the implementation of the human resources management information technology system;

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4. Also requests the Secretary-General to strengthen programmes to promote health in hardship posts, including through psychological support and disease awareness, with a view to promoting productivity and a better work environment; 5. Takes note of the report of the Secretary-General on measures to address the imbalance in the geographical distribution of the staff in the Office of the United Nations High Commissioner for Human Rights;10 6. Also takes note of the amendments to the Staff Rules as contained in the annex to the above-mentioned report.10

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A/61/823.

DOCUMENT SEVEN

SYSTEM-WIDE COHERENCE UN GENERAL ASSEMBLY RESOLUTION A/RES/63/311, 14 SEPTEMBER 2009 TABLE OF CONTENTS Page 1. Strengthening the institutional arrangements for support of gender equality and the empowerment of women............................................... 2. Strengthening governance of operational activities for development of the United Nations system for enhanced system-wide coherence................. 3. Improving the funding system of operational activities for development of the United Nations system for enhanced system-wide coherence....... 4. ‘Delivering as one’....................................................................................... 5. Harmonization of business practices............................................................ 6. The way forward ..........................................................................................

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The General Assembly, Recalling the 2005 World Summit Outcome,1 Recalling also its resolution 62/208 of 19 December 2007 on the triennial comprehensive policy review of operational activities for development of the United Nations system, Recalling further its resolution 62/277 of 15 September 2008 on system-wide coherence, Recalling the Convention on the Elimination of All Forms of Discrimination against Women,2 the Beijing Declaration and Platform for Action,3 and the outcome of the twenty-third special session of the General Assembly,4 Reaffirming the importance of the comprehensive policy review of operational activities for development of the United Nations system, through which the General Assembly establishes key system-wide policy orientations for the development cooperation and country-level modalities of the United Nations system, Recalling the role of the Economic and Social Council in providing coordination and guidance to the United Nations system to ensure that those policy orientations are implemented on a system-wide basis in accordance with resolution 62/208 and other relevant resolutions, Having considered the discussion notes on ‘Further details on institutional options for strengthening the institutional arrangements for support of gender equality and the empowerment of women’ of 5 March 2009, on ‘Strengthening governance of operational activities for development of the United Nations system for enhanced systemwide coherence’ of 15 April 2009 and on ‘Strengthening the system-wide funding architecture of operational activities of the United Nations for development’ of 3 May 2009, which the Deputy Secretary-General, on behalf of the Secretary-General, provided to the President of the General Assembly in response to a request from Member States, 1. Strengthening the institutional arrangements for support of gender equality and the empowerment of women 1. Strongly supports the consolidation of the Office of the Special Adviser on Gender Issues and Advancement of Women, the Division for the Advancement of Women, the United Nations Development Fund for Women and the United Nations International Research and Training Institute for the Advancement of Women, into a composite entity, taking into account the existing mandates; 2. Supports that the composite entity shall be led by an Under-SecretaryGeneral, who will report directly to the Secretary-General, to be appointed by the Secretary-General, in consultation with Member States, on the basis of equitable geographical representation and gender balance; 1

See resolution 60/1. United Nations, Treaty Series, vol. 1249, No. 20378. 3 Report of the Fourth World Conference on Women, Beijing, 4–15 September 1995 (United Nations publication, Sales No. E.96.IV.13), chap. I, resolution 1, annexes I and II. 4 Resolution S-23/2, annex, and resolution S-23/3, annex. 2

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3. Requests the Secretary-General to produce, for the consideration of the General Assembly at its sixty-fourth session, a comprehensive proposal specifying, inter alia, the mission statement of the composite entity, the organizational arrangements, including an organizational chart, funding and the executive board to oversee its operational activities in order to commence intergovernmental negotiations; 2. Strengthening governance of operational activities for development of the United Nations system for enhanced system-wide coherence 4. Reaffirms that the strengthening of the governance of operational activities for development of the United Nations system should focus on enhancing existing intergovernmental bodies with the purpose of making the United Nations development system more efficient and effective in its support to developing countries for the achievement of the internationally agreed development goals; 5. Underscores that the governance of operational activities for development should be transparent and inclusive and should support national ownership and national development strategies; 6. Requests the Secretary-General, in consultation with the United Nations System Chief Executives Board for Coordination, to propose to the General Assembly, at its sixty-fourth session, actionable proposals for the further improvement of the governance of the operational activities for development; 7. Also requests the Secretary-General, in consultation with the members of United Nations System Chief Executives Board for Coordination and the United Nations Development Group, to propose to the General Assembly, at its sixty-fourth session, modalities for the submission and approval of common country programmes on a voluntary basis, bearing in mind the importance of national ownership and effective intergovernmental oversight of the development process; 8. Reaffirms the importance of strengthening evaluation as a United Nations system function and the guidance contained to this effect in its resolution 62/208, and in this regard requests the Secretary-General, in consultation with the members of the United Nations System Chief Executives Board for Coordination, to propose to the General Assembly, at its sixty-fourth session, modalities for the establishment of an independent system-wide evaluation mechanism to assess system-wide efficiency, effectiveness and performance, bearing in mind the evaluation functions carried out by respective United Nations organizations, the Joint Inspection Unit and the United Nations Evaluation Group; 9. Urges the United Nations System Chief Executives Board for Coordination and the United Nations Development Group to enhance the transparency of their activities through regular briefings to the General Assembly and through regular reports and effective interaction with the Economic and Social Council and relevant intergovernmental bodies; 10. Encourages continued and increased cooperation, coordination and coherence and exchanges between the United Nations and the Bretton Woods institutions, and requests the Secretary-General, in consultation with the United Nations System Chief Executives Board for Coordination, to regularly apprise the General Assembly of pro-

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gress made in this regard as part of the triennial and quadrennial comprehensive policy review reporting process; 3. Improving the funding system of operational activities for development of the United Nations system for enhanced system-wide coherence 11. Emphasizes that increasing financial contributions to the United Nations development system is key to achieving the internationally agreed development goals, including the Millennium Development Goals, and in this regard recognizes the mutually reinforcing links between the increased effectiveness, efficiency and coherence of the United Nations development system, achieving concrete results in assisting developing countries in eradicating poverty and achieving sustained economic growth and sustainable development through operational activities for development and the overall resourcing of the United Nations development system; 12. Stresses that core resources, because of their untied nature, continue to be the bedrock of the operational activities for development of the United Nations system; 13. Notes with concern the continuing imbalance between core and non-core resources received by the operational activities for development of the United Nations system and the potential negative impact of non-core funding on the coordination and effectiveness of operational activities for development at the country level, while recognizing that thematic trust funds, multi- donor trust funds and other voluntary nonearmarked funding mechanisms linked to organization-specific funding frameworks and strategies, as established by the respective governing bodies, constitute some of the funding modalities that are complementary to regular budgets; 14. Urges donor countries and other countries in a position to do so to substantially increase their voluntary contributions to the core/regular budgets of the United Nations development system, in particular its funds, programmes and specialized agencies, to contribute on a multi-year basis, in a sustained and predictable manner, and to undertake voluntary commitments to provide a greater share of system-wide contributions to operational activities for development as core/regular resources; 15. Requests the Secretary-General to include in his comprehensive statistical analysis of the financing of operational activities for development further analysis and actionable proposals on the current situation and perspectives in respect of core and non-core funding for the United Nations development system, notably the implications of various forms of non-core funding, in terms of predictability, country ownership and the implementation of intergovernmental mandates; 16. Also requests the Secretary-General to create a central repository of information on operational activities for development, including disaggregated statistics on all funding sources and expenditures, building on the his comprehensive statistical analysis of the financing of operational activities for development, and to ensure appropriate and user-friendly online access and regular updating of the information contained therein;

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4. ‘Delivering as one’ 17. Acknowledges the interim assessments of the progress made and the challenges remaining in efforts to increase coherence in country-level programming, including in the ‘programme country pilots’; 18. Encourages the Secretary-General to support ‘programme country pilot’ countries to undertake expeditiously their own country-led evaluations with the participation of relevant stakeholders and with the technical support of the United Nations Evaluation Group; 19. Requests the Secretary-General to urgently undertake arrangements for an independent evaluation of lessons learned from the above efforts, as requested in resolution 62/208, and to inform the General Assembly of the modalities and terms of reference of this independent evaluation at its sixty-fourth session; 20. Underscores that the independent evaluation should be guided by the principles contained in resolution 62/208 with regard to national ownership and leadership and be conducted in the context of system-wide norms and standards, that it should be based on an inclusive, transparent, objective and independent approach, and that its outcome should be submitted to the General Assembly at its sixty-sixth session; 5. Harmonization of business practices 21. Calls upon the Secretary-General, in cooperation with the members of the United Nations System Chief Executives Board for Coordination, to continue progress in the simplification and harmonization of business practices within the United Nations development system, and requests the Secretary-General, in consultation with the System Chief Executives Board, to regularly inform the Economic and Social Council about progress being made and challenges encountered in this regard and to refer any matter requiring an intergovernmental decision to the relevant intergovernmental bodies; 6. The way forward 22. Decides to continue the intergovernmental work of the General Assembly on system-wide coherence on the issues addressed in the present resolution during the sixty-fourth session, with a view to achieving further substantive action in all areas, and resolves, at the conclusion of its entire process on system-wide coherence, to review and take stock of all its prior actions and deliberations in a single resolution or decision.

BIBLIOGRAPHY 1. Authored publications, reports and notes Aita, Judy, World Summit Concludes with Declaration of U.N. Goals, United States State Department, Washington D.C., 16 September 2005 at http://www.usinfo.stae.gov Birenbaum, David, UN Reform: Progress, Prospects, and Priorities, Woodrow Wilson International Center for Scholars, Washington D.C. 2007 at http;//www.wilsoncenter.org Deen, Thalif, Politics: Security Council Reform Remains Deadlocked, Inter Press Service North America, New York, 17 August 2009, at http://www.ipsnews.net Fassbender, Bardo, ‘On the Boulevard of Broken Dreams: The Project of a Reform of the UN Security Council After the 2005 World Summit’, International Organizations Law Review, Vol. 2, No. 2, 2005, pp. 391-402 at http://www.brill.nl/iolr Freiesleben, Jonas von, ‘Security Council Reform’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 1 to 20, at www.centerforunreform.org _____, ‘System-wide Coherence’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 37 to 53, at www.centerforunreform.org _____, A Look at the Transitional Approach to Security Council Reform, Center for UN Reform Education, New York, 24 June 2008 at http://www.centerforunreform.org _____, General Assembly Debates Security Council: Still Slow Going, Center for UN Reform Education, New York, 15 November 2007 at http://www.centerforunreform.org _____, Member States Balk at Latest Report on Security Council Reform, Center for UN Reform Education, New York, 5 September 2008 at http://www.centerforunreform.org _____, Member States Discuss Security Council Reform Again: A Never-Ending Process?, Center for UN Reform Education, New York, 16 April 2008 at http://www.centerforunreform.org _____, Member States Meet to Discuss Report of the Task Force on Security Council Reform, Center for UN Reform Education, New York, 19 June 2008 at http://www.centerforunreform.org _____, Member States Renew Mandate for Working Group on Security Council After Intense Discussions, Center for UN Reform Education, New York, 16 September 2008 at http://www.centerforunreform.org Fukuyama, Francis, ‘Review of Joachim Müller’s Reforming the United Nations: New Initiatives and Past Efforts’, Foreign Affairs, May/June 1998, Volume 77, Number 3 at http://www.foreignaffairs.com Inomata, Tadanori, Management Review of Environmental Governance Within the UN System, Joint Inspection Unit, JIU/REP/2008/3, Geneva, 2008 at http://www.unjiu.org Ivanova, Maria, Jennifer Roy, ‘The Architecture of Global Environment Governance: Pros and Cons of Multiplicity’ in Lydia Swart, Estelle Perry (eds.), Global Environmental Governance: Perspectives on the Current Debate, Center for UN Reform Education, New York, May 2007 at http://www.centerforunreform.org Jones, Bruce, Abby Stoddard, External Review of the Inter-Agency Standing Committee, Center on International Cooperation, New York University, December 2003 at http://www.cic.nyu.edu/ Kanie, Norichika, ‘Governance with Multilateral Environmental Agreements: A Healthy or Ill-Equipped Fragmentation’ in Lydia Swart, Estelle Perry (eds.), Global Environmental Governance: Perspectives on the Current Debate, Center for UN Reform Education, New York, May 2007 at http://www.centerforunreform.org Kugel, Alischa, ‘Reform of the Security Council – A New Approach?’, Dialogue on Globalization, Briefing Papers 12, Friedrich Ebert Stiftung, New York, September 2009 at http://www.fesglobalization.org/new_york/ Laurent, Jeffrey, ‘Fork in the Road’, The World Today, August/September 2005, pp. 4-7 Lund, Jakob S, Daniel Safran-Hon, Third Round of Intergovernmental Negotiations on UN Security Council Reform Conclude, Center for UN Reform Education, New York, 30 September 2009 at http://www.centerforunreform.org Martinetti, Irene, ‘Secretariat and Management Reform’ in Managing Change at the United Nations, Center for UN Reform Education, New York, April 2008, pp. 55 to 78, at www.centerforunreform.org

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Mezzalama, Francesco, Khali Issa Othman, Louis-Dominique Ouedraogo, Review of the Administrative Committee on Coordination and its Machinery, Joint Inspection Unit, JIU/REP/99/1, Geneva, 1999 at http://www.unjiu.org Müller, Joachim, Reforming the United Nations: New Initiatives and Past Efforts, Kluwer Law International, The Hague, The Netherlands, Volumes I to III, 1997 at http://www.brill.nl _____, Joachim, Reforming the United Nations: The Quiet Revolution, Kluwer Law International, The Hague, The Netherlands, Volume IV, 2001 at http://www.brill.nl _____, Reforming the United Nations: The Struggle for Legitimacy and Effectiveness, Martinus Nijhoff Publishers, Leiden, The Netherlands, Volume V, 2006 at http://www.brill.nl Safran-Hon, Daniel, Chair of Informal General Assembly Consultations on Security Council Reform Describes Future Steps in Press Conference, Center for UN Reform, New York, 22 July 2009 at http://www.centerforunreform.org Sen, Kasturi, Civil Society Perspectives on the Paris Declaration and Aid Effectiveness, International NGO Training and Research Centre (INTRAC), Policy Briefing Paper 14, October 2007 at http://www.intrac.org/ Shakow, Alexander, Global Fund – World Bank HIV/AIDS Programs Comparative Advantage Study, Global Fund to Fight AIDS, Tuberculosis and Malaria and World Bank Global HIV/AIDS Programs, 19 January 2006 at http://www.theglobalfund.org/en/ Swart, Lydia, Countries Welcome Work Plan as Security Council Reform Process Commences New Phase, Center for UN Reform Education, New York, 24 February 2009 at http://www.centerforunreform.org Tandon, Yash, The Paris Declaration and Aid Effectiveness, Global Policy Forum, New York, 10 June 2008 at http://www.globalpolicy.org Weyel, Volker, ‘Beyond Extension, the UN Security Council: Insights into an Ongoing Debate’, in The Quest for Regional Representation, Reforming the United Nations Security Council, Critical Currents no. 4, Dag Hammarskjöld Foundation, Occasional Paper Series, May 2008 at http://www.dhf.uu.se/critical_currents 2. UN system documents, reports, notes, resolutions and decisions 2.1. Chief Executive Board (CEB) at http://unsystemceb.org/reports Annual Overview Report of the CEB for 2008/2009, UN document E/2009/67, 7 May 2009 Annual Overview Report of the CEB for 2007/2008, UN document E/2008/58, 12 May 2008 Annual Overview Report of the CEB for 2006/2007, UN document E/2007/69, 24 May 2007 Annual Overview Report of the CEB for 2005/2006, UN document E/2006/66, 12 May 2006 Annual Overview Report of the CEB for 2004/2005, UN document E/2005/63, 13 May 2005 Annual Overview Report of the CEB for 2003, UN document E/2004/67, 18 May 2004 Annual Overview Report of the CEB for 2002, UN document E/2003/55, 25 April 2003 Annual Overview Report of the CEB for 2001, UN document E/2002/55, 3 May 2002 Annual Overview Report of the CEB for 2000, UN document E/2001/55, 29 May 2001 First Regular Session of CEB 2009, UNESCO, Paris, 4-5 April 2009, CEB document 2009/1, 5 May 2009 Second Regular Session of CEB 2008, UN, New York, 24-25 October 2008, CEB document 2008/2, 19 November 2008 First Regular Session of CEB 2008, UPU, Berne, 28-29 April 2008, CEB document 2008/1, 20 May 2008 Second Regular Session of CEB 2007, New York, 26-27 October 2007, CEB document 2007/2, 5 December 2007 First Regular Session of CEB 2007, Geneva, 20 April 2007, CEB document 2007/1, 24 May 2007 Second Regular Session of CEB 2006, New York, 27 October 2006, CEB document 2006/2, 15 December 2006 First Regular Session of CEB 2006, Madrid, 7 April 2006, CEB document 2006/1, 14 June 2006 Second Regular Session of CEB 2005, New York, 28 October 2005, CEB document 2005/2, 2 December 2005 First Regular Session of CEB 2005, Mont Pèlerin, Switzerland, 9 April 2005, CEB document 2005/1, 1 June 2005 Second Regular Session of CEB 2004, New York, 29-30 October 2004, CEB document 2004/2, 7 December 2004 First Regular Session of CEB 2004, Vienna, 2-3 April 2004, CEB document 2004/1, 3 May 2004

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Second Regular Session of CEB 2003, New York, 31 October-1 November 2003, CEB document 2003/2, 5 December 2003 First Regular Session of CEB 2003, Paris, 25-26 April 2003, CEB document 2003/1, 16 May 2003 Second Regular Session of CEB 2002, New York, 8-9 November 2002, CEB document 2002/2, 9 December 2002 First Regular Session of CEB 2002, Rome, 10-11 April 2002, CEB document 2002/1, 6 June 2002 One United Nations, Catalyst for Progress and Change, CEB report, July 2005 2.2. UN Development Group (UNDG) at http://www.undg.org 2004 Year-End Report, UNDG report, February 2005 2005 Year-End Report, UNDG report, March 2006 2006 Work Priorities and Results, UNDG report, February 2005 2007 Year-End Report, UNDG report, March 2008 Delivering as One 2008 Stocktaking Synthesis Report, Joint Reports by Governments and UN Country Teams, UNDG report, 2009 Guidance Note on Joint Programming, UNDG note, 19 December 2003 Harmonization, Alignment and Results, Statement at the High-level Forum on Aid Effectiveness, Paris, UNDG note, 28 February 2005 UN Reform: Harmonization and Alignment to Achieve the Millennium Development Goals, UNDG note, February 2005 2.3. High Level Committee on Programme (HLCP) at http://hlcp.unsystemceb.org Report of the Eighteenth Session of HLCP, New York, 17-18 September 2009, CEB document 2009/5, 19 October 2009 Report of the Seventeenth Session of HLCP, Geneva, 26-27 February 2009, CEB document 2009/4, 23 March 2009 Report of the Sixteenth Session of HLCP, Rome, 30 September-1 October 2008, CEB document 2008/6, 19 November 2008 Report of the Fifteenth Session of HLCP, Rome, 13-14 March 2008, CEB document 2008/4, 11 April 2008 Report of the Fourteenth Session of HLCP, New York, 20-21 September 2007, CEB document 2007/7, 15 October 2007 Report of the Intersession Meeting of HLCP, Geneva, 4 July 2007, CEB document 2007/8, 10 September 2007 Report of the Thirteenth Session of HLCP, Castel Gandolfo, Italy, 20-21 March 2007, CEB document 2007/4, 8 June 2007 Report of the Twelfth Session of HLCP, Rome, 29-30 September 2006, CEB document 2006/7, 16 October 2006 Report of the Intersessional Meeting of HLCP, Geneva, 6 July 2006, CEB document 2006/6, 3 August 2006 Report of the Eleventh Session of HLCP, Paris, 27 February to 1 March 2006, CEB document 2006/4, 24 March 2006 Report of the Tenth Session of HLCP, Frascati, Italy, 6-8 October 2005, CEB document 2005/7, 25 October 2005 Report of the Ninth Session of HLCP, Rome, 23-25 February 2005, CEB document 2005/4, 21 March 2005 Report of the Eighth Session of HLCP, Florence, 15-17 September 2004, CEB document 2004/7, 14 October 2004 Report of the Intersessional Meeting of HLCP, Frascati, 31 May-1 June, CEB document 2004/5, 23 August 2004 Report of the Seventh Session of HLCP, Beirut, 26-27 February 2004, CEB document 2004/4, 19 March 2004 Report of the Intersessional Meeting of HLCP, New York, 3 November 2003, CEB document 2003/8, 2 December 2003 Report of the Sixth Session of HLCP, Rome, 18-19 September 2003, CEB document 2003/7, 6 November 2003

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Conclusions of the Third Session of HLCM, New York, 4-5 March 2002, CEB document 2002/3, 22 March 2002 Plan of Action for the Harmonization of Business Practices in the United Nations System, Funding Proposal, CEB document 2008/HLCM/10, 23 September 2008 2.5. High Level Task Force (HLTF) on the Global Food Security Crisis, New York, at http://www.un.org/issues/food/taskforce Eighth Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 23 March 2009 Seventh Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 20 February 2009 Sixth Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 15 December 2008 Fifth Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 18 September 2008 Fourth Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 28 July 2008 Third Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 24 June 2008 Second Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 28 May 2008 First Meeting of the High Level Task Force on the Global Food Security Crisis, HLTF report, 12 May 2008 Issue Note for Special Meeting of the Economic and Social Council on Global Food Crisis, HLTF report, 20 May 2008 Outcomes and Actions for Global Food Security, Excerpts from ‘Comprehensive Framework for Action’, HLTF report, July 2008 Programme of Work 2009, HLTF report, 2009 2.6. Other UN documents A More Secure World: Our Shared Responsibility, Report of the High-Level Panel on Threats, Challenges and Change, UN document A/59/565, 2 December 2004 A New United Nations Structure for Global Economic Cooperation, UN document E/AC.62/9, 28 May 1975 A Study of the Capacity of the United Nations Development System, UN document DP/5, 1969 An Agenda for Peace, Report of the Secretary-General, UN document A/47/277 – S/24111, 17 June 1992 Delivering as One, High-level Panel on United Nations System-wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, UN document A/61/583, 20 November 2006 Efficiency of the Administrative and Financial Functioning of the United Nations, UN document A/41/49, August 1986 Functioning of the Resident Coordinator System, including Costs and Benefits, Report of the SecretaryGeneral, UN document E/2008/60, 13 May 2008 Implementing the Responsibility to Protect, Report of the Secretary-General, UN document A/63/677, 12 January 2009 In Larger Freedom: Towards Development, Security and Human Rights for All, Report of the SecretaryGeneral, UN document A/59/2005, 21 March 2005 Investing in the United Nations: For a Stronger Organization Worldwide, Report of the Secretary-General, UN document A/60/692, 7 March 2006 Overview of United Nations Activities in Relation to Climate Change, Report of the Secretary-General, UN document A/62/644, 10 January 2008 Recommendations Contained in the Report of the High-level Panel on United Nations System-wide Coherence in the Areas of Development, Humanitarian Assistance and the Environment, Report of the Secretary-General, UN document A/61/836, 3 April 2007 Renewing the United Nations: A Programme for Reform, Report of the Secretary-General, UN document A/51/950, 14 July 1997

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Report of the Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, Official Records of the General Assembly, Fifty-First Session, Supplement No. 47, UN document A/51/47, 1997 _____, Sixty-First Session, Supplement No. 47, UN document A/61/47, 2007 _____, Sixty-Second Session, Supplement No. 47, UN document A/62/47, 2008 _____, Sixty-Third Session, Supplement No. 47, UN document A/63/47, 2009 Strengthening of the Coordination of Emergency Humanitarian Assistance of the United Nations, Report of the Secretary-General, UN document A/63/81-E/2008/71, 30 May 2008 Strengthening of the United Nations: An Agenda for Further Change, Report of the Secretary-General, UN document A/57/387, 9 September 2002. United Nations Peace Operations, Panel on United Nations Peace Operations, UN document A/55/305– S/2000/809, 21 August 2000 2.7. UN resolutions and decisions 2005 World Summit Outcome, UN Summit resolution A/RES/60/1, 16 September 2005 Human Resources Management, UN General Assembly resolution A/RES/63/250, 24 December 2008 Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Related Matters, UN General Assembly resolution A/RES/48/26, 3 December 1993 Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters Related to the Security Council, UN General Assembly decision A/DEC/62/557, 15 September 2008 Strengthening of the Capacity of the Organization in Peacekeeping Operations, UN General Assembly resolution A/RES/61/256, 15 March 2007 Strengthening of the Capacity of the Organization to Advance the Disarmament Agenda, UN General Assembly resolution A/RES/61/257, 15 March 2007 Strengthening of the United Nations: An Agenda for Further Change, UN General Assembly resolution A/RES/57/300, 20 December 2002 Strengthening the Capacity of the United Nations to Manage and Sustain Peacekeeping Operations, UN General Assembly resolution A/RES/61/279, 29 June 2007 System-wide Coherence, UN General Assembly resolution A/RES/62/277, 15 September 2008 _____, UN General Assembly resolution A/RES/63/311, 14 September 2009 Triennial Comprehensive Policy Review of Operational Activities for Development of the United Nations System, UN General Assembly resolution A/RES/62/208, 19 December 2007 United Nations Millennium Declaration, UN General Assembly resolution A/RES/55/2, 8 September 2000 2.8. Other UN reports and notes Consolidated Response Regarding Questions Raised Following Discussions of the Paper ‘Further Details on Institutional Options for Strengthening the Institutional Arrangements for Support to Gender Equality and the Empowerment of Women’, UN Secretariat report, New York, 3 June 2009 Evaluability Assessments of the Programme Country Pilots Delivering as One UN (DAO), Synthesis Report, UN Evaluation Group report, 12 September 2008 at http://www.uneval.org/ Global Task Team on Improving AIDS Coordination among Multilateral Institutions and International Donors, UNAIDS report, Geneva, 14 June 2005 at http://www.unaids.org/en/ Note on Funding System for Development, UN Secretariat report, New York, 5 May 2009 Note on Gender Architecture, UN Secretariat report, New York, 5 March 2009 Note on Governance of Development Work, UN Secretariat report, New York, 16 April 2009 Secretary-General Welcomes General Assembly Resolution on System-Wide Coherence, particularly Proposal for Stronger ‘Composite Entity’ to Promote Women’s Rights, UN note SG/SM/12454, 15 September 2009 Strengthening the Institutional Arrangement for Support of Gender Equality and the Empowerment of Women, Executive Summary by the Co-Chairs of the Informal Consultations of the General Assembly on United Nations System-wide Coherence, New York, 19 June 2009 Towards a Climate Neutral UN, Progress Report to the High-Level Committee on Programmes, UN Environment Management Group report, 20 September 2007 at http://www.unemg.org/

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3. Reports and notes 3.1. Reform the UN Project of the World Federalist Movement-Institute for Global Policy (WFM-IGP), New York, at http://www.reformtheun.org Consultations Highlight Governance-Funding Links, States Debate Increased Core Funding, Reform the UN note, 24 June 2009 Deliberations Resume on Comprehensive Convention on International Terrorism, Reform the UN note, 22 June 2009 Discussions on Terrorism Convention end Without Agreement, Reform the UN note, 30 July 2009 Efforts to Reform International Environmental Governance Stall, Reform the UN note, 19 March 2009 Experts Give Input on Funding Architecture, Joint Meeting Today on Funding and Governance Reform, Reform the UN note, 17 June 2009 More States are Leaning Towards an Intermediate Solution, Reform the UN note, 6 July 2009 Secretary-General Recommends Reforms in Governance of UN Development Work, Reform the UN note, 17 June 2009 States Call for Movement on System-Wide Coherence by September, Reform the UN note, 26 June 2009 States Discuss Evaluation of ‘Delivering as One’, Reform the UN note, 29 July 2009 The President of the General Assembly Confirms Dates for the Long Awaited GA Discussion on RtoP, Reform the UN note, 17 July 2009 UN System Offers Further Details on Strengthening the Gender Architecture, Reform the UN note, 19 June 2009 3.2. Other reports and notes Accra Agenda for Action, Third High Level Forum, Accra, Ghana, OECD, September 2008 at http://www.oecd.org American Interests and UN Reform, Report of the Task Force on the United Nations, United States Institute of Peace, Washington D.C, June 2005 at http://www.usip.org Investing in Development: A Practical Plan to Achieve the Millennium Development Goals, UN Millennium Project, New York, 2005 at www.unmillenniumproject.org Paris Declaration on Aid Effectiveness, Second High Level Forum, Paris, OECD, March 2005 at http://www.oecd.org Radical U.N. Reform Now, Washington Times, 5 March 2006 Rome Declaration on Harmonization, First High Level Forum, Rome, OECD, February 2003 at http://www.oecd.org The Paris Declaration: Towards Enhanced Aid Effectiveness?, Reality Check, Quenzon City, Philippines, January 2007 at http://www.realityofaid.org United Nations: Reform Initiatives have Strengthened Operations, but Overall Objectives have not Yet been Met, United States General Accounting Office, GAO/NSIAD-00-150, Washington, D.C., May 2000 at http://www.gao.gov United Nations: Reforms Progressing, but Comprehensive Assessments Needed to Measure Impact, United States General Accounting Office, GAO-04-339, Washington, D.C., February 2004 at http://www.gao.gov

INDEX OF NAMES Aita, Judy, 28 Al Khalifa, Haya Rashed, 41 Amin, Adnan Z., 341 Annan, Kofi, VII, VIII, 9, 31, 48, 53, 90 Annan, Kojo, 21 Aziz, Shaukat, 47, 339 Badinter, Robert, 19 Båge, Lennart, 48, 340 Ban Ki-moon, VIII, 31, 32, 38, 53, 55, 76 Biden, Joseph, 9, 11,12 Blair, Tony, 20 Bolton, John R, 28, 30 Boutros-Ghali, Boutros, VIII, 8 Brahimi, Lakhdar, VIII, 90 Brown, Gordon, 47, 339 Brundtland, Gro Harlem, 19 Buchholz, Kai, 341 Chinery-Hesse, Mary, 19 Chirac, Jacques, 20 Coleman, Norm, 21 Davidse, Koen, 341 Dervis, Kemal, 48, 340 Dini, Lamberto, 13 Diogo, Luísa Dias, 47, 339 Diouf, Jacques, 84

Ivanova, Maria, 168 Jackson, Sir Robert, 6 Jacoby, Ruth, 48, 339 Jansen, Maaike, 341 Kanie, Norichika, 163 Kavanagh, John, 66 Kerim, Sirjan, 42 Khalilzad, Zalmay, 30 Lagos, Ricardo, 48, 339 Lamy, Pascal, 54, 75 Laubitz, Zofia, X Laurent, Jeffrey, 20 Mahiga, Augustine, 66 Martinetti, Irene, 37 Maurer, Peter, 59 Mbuende, Kaire, 74 McCoy, Ruth Mezzalama, Francesco, 136 Michel, Louis, 48, 339 Migiro, Asha-Rose, 66 Mitchell, George, 19, 28 Mkapa, Benjamin W., 48, 339 Moussa, Amre, 19 Müller, Joachim, VII, 2, 6, 9, 89 Muñoz, Heraldo, 41

El-Ashry, Mohamed T., 48, 339 El-Farnawany, Mohamed, 341 Evans, Gareth, 19

Nabarro, David, 84 Nambiar, Satish, 19

Fassbender, Bardo, 13 Freiesleben, Jonas von, 40, 42, 43, 46 Fukuyama, Francis, 2

Ogata, Sadako, 19 Othman, Khali Issa, 136 Ouedraogo, Louis-Dominique, 136

Gingrich, Newt, 19, 21, 28 Greenhill, Robert, 47, 339 Grosfilley, Florence, X

Panyarachun, Anand, 19 Perry, Estelle, 163, 168 Primakov, Yevgeny, 19

Hackett, Christopher, 56 Hannay, David, 19 Heller, Claude, 59 Helms, Jesse, 9, 11, 12 Holms, John, 84 Hoscheit, Jean-Marc, 56 Huang, Treena, 341

Qichen, Qian, 19

Iglesias, Enrique, 19 Inomata, Tadanori, 163 Ismail, Razali, 15

Roy, Jennifer, 168 Sachs, Jeffrey, 19 Sadik, Nafis, 19 Salim, Salim Ahmed, 19 Schafer, Zazie Scowcroft, Brent, 19 Severino, Jean-Michel, 48, 339 Sheeran, Josette S., 49, 339

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Shiner, Josette S., 48 Sing, Fabienne Fon, 341 Soares, João Clemente Baena, 19 Somavia, Juan, 54, 75 Soumaré, Moustapha, 341 Stoltenberg, Jens, 48, 339 Swart, Lydia, 44, 163, 168 Takemi, Keizo, 48, 340 Tanin, Zahir, 44 Turner, Ted, 10 van Ardenne, Agnes, 49 Volcker, Paul, 19, 21, 28 Wenaweser, Christian, 41 Yáñez-Barnuevo, Juan Antonio, 74