Hundred and sixty-sixth Session REPORT BY THE DIRECTOR-GENERAL ON THE GEOGRAPHICAL DISTRIBUTION OF THE STAFF OF THE ORGANIZATION SUMMARY

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1 ex United Nations Educational, Scientific and Cultural Organization Executive Board Hundred and sixty-sixth Session 166 EX/32 PARIS, 27 February 2003 Original: English Item 8.4 of the provisional agenda REPORT BY THE DIRECTOR-GENERAL ON THE GEOGRAPHICAL DISTRIBUTION OF THE STAFF OF THE ORGANIZATION SUMMARY In accordance with 164 EX/Decision 6.8, the Director-General submits a progress report on the implementation of measures aimed at improving the geographical distribution of staff and provides detailed information on the methodology used to calculate geographical quotas. A revision of the current formula used for calculating the geographical quotas is also proposed in the document. Decision proposed: paragraph 74.

2 GENERAL INTRODUCTION 1. The document is divided in three parts: Part I contains information on the geographical distribution, as of 1 January 2003; Part II includes a progress report on the specific measures to improve the geographical distribution of staff; Part III describes the methods used by UNESCO and other United Nations organizations to calculate the geographical quotas attributed to the Member States and presents specific recommendations in this respect. Part I Update on the geographical distribution of the staff Situation as of 1 January As requested in 164 EX/Decision 6.8, an update of the situation as of 1 January 2003 is herewith submitted, including detailed information regarding geographical distribution in the different categories of posts and among Young Professionals. A detailed table of the geographical distribution by country for the month of January 2003 is annexed to this report (Annex I). General trends 3. Table 1 below gives an overview of the evolution of the geographical situation since January Table 1: Evolution of the geographical distribution January 2002-January Level of representation 1 January January Variation since 1 January 2002 Above range (+) 28 (14.8%) 23 (12.2%) 5 Within range (=) 64 (34%) 74 (39.4%) +10 Below range ( ) 50 (26.8%) 57 (30.3%) +7 Total represented 142 (75.6%) 154 (81.9%) +12 Non-represented (0) 46 (24.4%) 34 (18.1%) 12 Total Member States 188 (100%) 188 (100%) Nil ٤. The geographical distribution has markedly improved over the past year, with the following very positive trends: A significant increase of the total number of Member States represented in the Secretariat (from 142 to 154) with a corresponding decrease of the number of non-represented Member States (from 46 to 34). The following 14 countries are now represented in the Secretariat: Afghanistan, Armenia, Bahamas, Bosnia and Herzegovina, Cambodia, Gambia, Honduras, Kuwait, Kyrgyzstan, Lithuania, Moldova, Nepal, Ukraine and Zambia whereas Cyprus and Bolivia are now non-represented. A reduction in the number of over-represented Member States (from 28 to 23). Seven countries have moved out of the over-represented category and are now normally represented: Argentina, Cameroon, Costa Rica, Cuba, Guinea, Sweden and Togo. On the 1 Figures include Young Professionals appointed for 2003.

3 page 2 other hand, two countries have become over-represented: Belgium and the Philippines. In the case of the Philippines, this change is due to the modifications to the scale of contributions to the regular budget for 2003, which resulted in changes to the upper and lower limits of the quotas of Member States. An increase in the number of normally represented countries (from 64 to 74). 5. As indicated in Table 2 below, the number of occupied posts in Group I (Western Europe and North America) has decreased but remains close to the maximum quota. In Group IV (Asia and the Pacific), the total number of occupied posts has slightly increased, but remains largely below the minimum quota. Group II (Eastern Europe) and Group III (Latin America and the Caribbean) are very close to their minimum quotas. Table 2: Evolution of the geographical distribution by regional group Regional Situation on 1 January 2002 Situation on 1 January 2003 Groups* Quotas Quotas Staff Mini Maxi Mini Maxi Staff Group I ** ** Group II Group III Group IV *** *** Group V (Ar) Group V (Afr) Total 589 1, , * Electoral groups: I Western Europe and North America; II Eastern Europe; III Latin America and the Caribbean; IV Asia and the Pacific; V (Ar) Arab States; V (Afr) Africa. ** Including 16 United States nationals on 1 January 2002 and 19 United States nationals on 1 January *** Including two Singapore nationals on 1 January 2002 and one Singapore national on 1 January Table 3 a: Geographical distribution by regional group Current geographical distribution by regional group January 2003 Group V (Afr) 15% Group V (Ar) 8.3% Group I 41.6% Group IV 15.2% Group III 11.7% Group II 8.2% ٦. The graph above, illustrating the current geographical distribution by regional group, shows that Group I (Western Europe and North America) has a significantly higher representation than other regional groups.

4 page 3 Geographical distribution of staff by post categories 7. The table in Annex II shows, country by country, the geographical distribution in the professional and director categories for under-, normally and over-represented Member States. Young Professionals 8. A total of 42 Young Professionals have been recruited in UNESCO since 1998, all from under-represented or non-represented Member States. The table in Annex III shows their nationalities. As 18 of them were nationals from non-represented countries, these countries subsequently became represented in the Secretariat as a result of the Young Professionals Programme. Conclusion 9. The geographical distribution has significantly improved in 2002, with 82% of the Member States now represented in the Secretariat. This positive development is mainly due to the reinforcement of the Young Professionals Programme, which has contributed to the decrease in the number of the non-represented countries. The Secretariat s efforts in the recruitment area have also contributed to this positive evolution. The decrease in over-representation and the increase of the normally represented countries are encouraging signals. Efforts should, however, be pursued and strengthened towards the remaining non- and under-represented countries. An update of the measures taken in this respect is included in Part II of this report. Part II Progress report on the measures to improve the geographical distribution of the staff in UNESCO 10. At its 164th session, the Executive Board supported the proposed measures aimed at improving the geographical distribution of staff and invited the Director-General to submit, at its 166th session, a progress report on their implementation (164 EX/Decision 6.8). These measures can be divided by three categories: Improved geographical balance Promotion of vacancies in non- and underrepresented Member States Review of recruitment process Programmes for non- and under-represented Member States Recruitment planning Recruitment missions Revised selection procedures Young Professionals Programme Roster New layout of vacancy notices Wider publication of vacancies Recruitment of temporary staff Sponsorship of Associate Experts Local internships Redesigned HR website Recruitment at UNESCO information kit Evaluation kit Measures already in place Measures initiated

5 page 4 ١١. Some measures are already fully in place; others have been initiated and will be implemented in 2003 in close cooperation with sectors/bureaux, field offices, Permanent Delegations and National Commissions. The responsibility of the sectors/bureaux to improve the geographical balance and the monitoring of HRM have been reinforced. HRM will report to the Director-General twice a year on the evolution of geographical distribution within each sector/bureau. Measures already in place 12. Recruitment planning: Where possible, vacancies are identified well ahead of their vacancy date which gives recruiting units more time to search for candidates from non- and underrepresented Member States. The vacancies for the following 12 to 24 months are published annually in a vacancy bulletin which is sent to National Commissions, Permanent Delegations and field offices. 13. A new layout of UNESCO s vacancy notices provides clearer information and includes a stronger message to encourage candidates from non- and under-represented countries to apply. 14. The HR website was redesigned with the aim to provide clear information about the geographical distribution and the representation of Member States and to make the access to information more user-friendly in general. 15. A first recruitment mission to two presently non-represented Member States in the Gulf Region took place in January Five more missions, to non- or under-represented countries, have been foreseen for the following two years with each mission covering a different geographical region. To maximize the impact, specific profiles are identified for these missions and Permanent Delegations and National Commissions are asked to assist in selecting local partners. At the end of 2004, the results of the missions will be evaluated to decide if and how they should be continued. 16. The selection procedures during the recruitment process have been revised. The following measures have been implemented (DG/Note/02/32, issued 17 October 2002): (a) (b) (c) Shortlisting candidates: Although competence is the paramount criterion for selection, at least one candidate of comparable merit from a non- or under-represented country should be shortlisted for each vacancy. Recruiting managers have to thoroughly justify the shortlisting of an external candidate from an over-represented country. They also have to provide supporting evidence that qualified candidates have been sought from non- or under-represented countries. Language requirements: Candidates from non- and under-represented Member States may be shortlisted and selected even if they are fluent in only one working language provided that, once recruited, they acquire proficiency in the second language within a reasonable period of time. Such language training shall be mandatory and shall be funded by the Organization. The acquisition of language skills, following this training, shall be taken into account when renewing the staff member s contract. Pre-selection and evaluation panels: Candidates should be screened by multicultural pre-selection and evaluation panels which are constituted on as wide a geographical basis as possible. 17. The recruitment of temporary staff may engender expectations towards future regular positions subject to geographical distribution. Therefore, the principle was reinforced that no effort should be spared by recruiting units to ensure that temporary staff members are recruited from nonand under-represented countries (DG/Note/02/32, issued 17 October 2002).

6 page The Young Professionals Programme has been in existence for many years. It has contributed to the improvement of the geographical distribution of staff by opening up UNESCO to young qualified people from non- and under-represented Member States. Improved planning for the placement of Young Professionals, who have completed the first-year programme, is now in place. From 2004, the Director-General has allocated additional funds to support two-year funding of Young Professionals by HRM, instead of the current one-year programme. This measure will allow for better training of Young Professionals and, therefore, better preparation for future duties and responsibilities. 19. Sponsorship of Associate Experts could also help to attract persons from non- and underrepresented countries. At present only a few Member States, namely Sweden, the Netherlands and Italy, are sponsors. The Secretariat will contact other Member States to seek their cooperation in this regard. Measures initiated and to be implemented in Wider publication of vacancies, especially via diverse networks and in local media. For the last eight years, 2-4% of the applications received have been from non-represented countries and 7-16% from under-represented countries. It is felt that a wider publication of vacancies will help to increase the number of candidates from non- and under-represented Member States. Although the following measures are targeting both non- and under-represented countries, the initial focus will be on non-represented Member States: (a) UNESCO s field offices in non- and under-represented Member States have been contacted to ensure vacancy notices are displayed in their offices. (b) (c) Other United Nations agencies, with offices in non- and under-represented countries, have been identified and will be contacted with the aim of displaying UNESCO s vacancy notices in their offices. Networks with universities, NGOs and professional associations in non- and underrepresented countries will be built up with the help of field offices, Permanent Delegations and sectors/bureaux. These local partners will receive information on UNESCO s recruitment policies and processes, as well as all vacancy notices which should be displayed and, where applicable, published in bulletins. (d) Sectors/Bureaux, as well as Field Offices, Permanent Delegations, and National Commissions in non- and under-represented Member States are being approached for information about relevant local media. The most important media will be contacted and a list compiled containing basic information, contact persons, publication conditions, etc. for the use of future advertisements, either of vacancy notices or of public relation advertisements. It is also being evaluated, in cooperation with BPI, if it is possible to place editorial articles about UNESCO s employment opportunities. 21. A Recruitment at UNESCO information kit is being prepared. This kit, designed for potential candidates, will consist of brochures about UNESCO in general and recruitment matters in particular. The objective is to provide good initial information about the Organization and opportunities to join it. It will be used by UNESCO staff on mission and distributed to universities, NGOs, etc. 22. An Evaluation kit is being prepared for recruiting managers. It will contain specific information on the pre-selection and evaluation of candidates together with supporting tools such as

7 page 6 new guidelines for interviews, as well as information about candidates from non- and underrepresented Member States. Furthermore, training sessions for recruiting managers are foreseen. 23. A special database (roster) for qualified candidates from non- and under-represented Member States: Qualified, but not appointed, candidates and those whose CVs were referred for consideration can be retained in this roster, providing their profiles and qualifications are deemed likely to meet the requirements of future anticipated vacancies. To this effect, HRM and sectors/bureaux will enter candidates information into this database. All sectors/bureaux will have access to the roster and will be asked to consult it when recruiting. If HRM or sectors/bureaux identify candidates in the roster whose profiles fit a specific post, they are requested to contact them and encourage them to submit an application. To ensure the effectiveness of the roster, the database will be limited to a manageable number of candidates and updated regularly. HRM is currently developing the database and will monitor and ensure the global functioning of the roster and its continuous validity. 24. Internships can help to provide a pool of qualified young people who have demonstrated certain qualities while working with UNESCO and who could be considered for positions at a later date. In cooperation with field offices it will be explored if more local internships could be offered to students or young graduates from non- and under-represented Member States in UNESCO offices. Conclusion 25. The aim of the above-mentioned measures is to attract and appoint more candidates from nonand under-represented Member States and to gradually improve the geographical balance of staff within UNESCO. However, significant changes will take time and results should be viewed from a long-term perspective. It is essential that the close cooperation between the Member States and the Secretariat continues. Part III Calculation of the geographical quotas in UNESCO and in other United Nations organizations 26. In 164 EX/Decision 6.8, the Executive Board requested the Director-General to include in his report to the 166th session information on the criteria for excluding posts from geographical distribution and the number of posts concerned, and information concerning criteria used to establish the base figure for calculating national quotas and information on alternative formulations used by other United Nations organizations. Background 27. The method of calculating the geographical quotas in UNESCO has been raised in several Executive Board sessions in the past. The principles governing the method of calculating the quotas assigned to the Member States in UNESCO have evolved over time, and are the result of a long process marked by many decisions and resolutions adopted by the governing bodies. 28. In 1997, a report of the Joint Inspection Unit comparing the methods of calculating the geographical distribution within the United Nations common system was presented to the 152nd session of the Executive Board. 2 This report showed that there are some variations in the calculation methods of geographical quotas in the United Nations system (see Annex IV for a summary comparison). In December 2002, UNESCO conducted a comparative study of the 2 Cf. JIU/REP/96/7 in 152 EX/41.

8 page 7 methodologies and formulae used in a sample of representative organizations of the United Nations common system, including the United Nations Secretariat, FAO, WHO, UNIDO and IAEA. 29. It should be noted that a large number of organizations in the United Nations system 3 do not have any specific rules or methodologies governing geographical distribution and its reporting. The agencies which have formal geographical distribution mechanisms, besides UNESCO, are the United Nations Secretariat, FAO, WHO, UNIDO, ILO, WIPO and ICAO. Methodology used in UNESCO for the geographical distribution of posts 30. Like in most United Nations agencies with formal geographical distribution mechanisms, UNESCO s methodology for the calculation of quotas is based on the base figure. Two factors are used to determine the share of the base figure reserved for allocation among Member States: the membership and the contribution factors. The quota, which is the number of posts assigned to a Member State, comprises a mid-point and an applicable range, with upper and lower limits. These notions are explained in more detail here below. The base figure 31. The base figure represents the total number of professional posts subject to geographical distribution in an organization (i.e. geographical posts ) as approved by its governing bodies. The base figure is generally slightly higher than the number of administratively existing professional posts, so as to allow possible upward fluctuations. In UNESCO, the base figure of geographical posts is set at 850 posts since 1 January 1990, 4 which is slightly above the ceiling of 845 regular budget posts 5 approved in document 31 C/ Four criteria are used to determine the geographical or non-geographical nature of a post: (a) (b) (c) The category of post: Posts in the Professional, Director and Assistant Director-General categories (P-1 to P-5; D-1/D-2; ADG) are considered geographical posts. The source of funding: Geographical posts are posts funded from the regular budget of the Organization; the rationale for excluding extrabudgetary financed posts from the geographical distribution stems from the time-limited nature of extrabudgetary funded activities, which are tied to specific projects and, in most cases, funded by one or a small group of Member States. The duration of the post: Geographical posts are established posts, which are created for at least one year, as opposed to temporary posts whose duration is less than one year and are thus considered as non-geographical. (d) The nature of functions: Geographical posts are related to functions which may be performed by nationals of any Member State. Linguistic functions, for instance, are considered as being best performed by nationals whose mother tongue is one of the Organization s working languages. Language posts (interpreters, translators and revisers) are thus considered non-geographical. 3 I.e. UNDP, UNHCR, UNICEF, UNOPS, UNRWA, UNAIDS, ITC, UNU, WMO, IMO, IFAD, WTO and IAEA. 4 Cf. 25 C/Resolution 40; this base figure has varied significantly over the past years (initially from 400 to 1,100 and from 1,100 to 850). 5 The figure of 845 posts includes P and D and above posts, excluding 52 NPO posts.

9 page Based on the above criteria, the posts financed by extrabudgetary funds, the temporary posts and the language posts funded by the regular budget are non-geographical and thus not included in the base figure in UNESCO. As of 1 January 2003, there are 39 such non-geographical language posts funded by the regular budget. Quota: Mid-point and desirable range 34. In the geographical distribution systems across the United Nations, the quota is not construed as an absolute number of posts but as a mid-point, with desirable ranges above and below this mid-point. The mid-point represents the ideal number of posts attributable to each Member State. The desirable range, which is calculated from the mid-point, comprises two figures: the maximum and the minimum number of posts beyond which a Member State is considered as overor under-represented. 35. The upper and lower limits of the desirable range are calculated according to a percentage fixed by the governing bodies. In UNESCO, the upper and lower limits of the range are fixed at 25% above and below the mid-point. These limits lead to the classification of Member States as in balance, over-represented or under-represented (see schema below). 36. In UNESCO, the minimum lower limit is two posts and the minimum upper limit is four posts. This represents the minimal quota, and means that the lowest threshold for normal representation in UNESCO is set at two posts, and the lowest threshold for over-representation is set at four posts. Geographical Quota Upper limit: 25% above the mid-point Lower limit: 25% below the mid-point Over-representation Normal Representation 25 % Underrepresentation (Lowest maxima = 4 posts) Mid-point (ideal geographical representation) (Lowest minima = 2 posts) Membership and contribution factors 37. To calculate the mid-point, UNESCO allocates to Member States a share of posts from the base figure, based on two factors, the membership factor and the population factor. 38. The membership factor represents the right of each Member State to a fixed number of posts. This number is equal for all Member States. The contribution factor is the part of the base figure to be distributed among Member States on the basis of their assessed contributions to the regular budget of the Organization. Both factors are expressed as a decimal fraction and are decided by the governing bodies.

10 page In UNESCO, since 1999, the membership factor is fixed at 65%, representing a total of 553 posts to be shared, and the contribution factor at 35%, representing a total of 297 posts to be shared. 6 These ratios have evolved over time, with a gradual decrease of the membership factor and a corresponding increase of the contribution factor (from 76% - 24% in 1993, to 70% - 30% in 1995, to 65% - 35% in 1999). The fact that the membership factor is much higher than the contribution factor is quite unique to UNESCO. The hierarchy of these factors across the United Nations system is, indeed, in the reverse order, with a contribution factor higher than the membership (see Annex IV). Formula applied by UNESCO 40. The formula applied by UNESCO is the following: Base figure x Share for membership factor Number of Member States 850 x 65% Base figure x Share for the contribution factor x Percentage of contribution to the regular budget 100% of the assessed contributions to the regular budget 850 x 35% x % of Member State contribution to the regular budget 100 = = Mid-point Methodology used in other United Nations organizations United Nations Secretariat 41. The United Nations Secretariat, which has a base figure of 2,700 posts subject to geographical distribution, uses three factors in the calculation of the geographical quotas: The membership factor, set at 40% of the base figure, the contribution factor, set at 55% of the base figure, and a population factor, set at 5% of the base figure. The population factor, which is also used in WHO and UNIDO, takes into account, to a limited extent, the size of the population of Member States. This factor is calculated according to the following formula: Base figure x Population of a State n x Share for population factor (5%) Total population of all Member States 6 Cf. 157 EX/Decision 8.6 and 30 C/Resolution 72.

11 page 10 ٤٢. In the United Nations Secretariat, the upper and lower limits of the quota are 15% above and below the mid-point, with a minimal quota of two to 14 posts. The base figure, which is established according to criteria similar to those applied in UNESCO, is adjusted whenever the actual number of posts subject to geographical distribution increases or decreases by 100. WHO 43. The WHO methodology is similar to the United Nations Secretariat, with similar membership, contribution and population factors. Specific to WHO is the inclusion, in the geographical distribution, of some posts financed by extrabudgetary funds. WHO is considering a review of this practice. UNIDO 44. The UNIDO methodology is similar to the United Nations Secretariat. The only variant concerns the minimum and maximum quotas for small contributors fixed respectively at one post and two posts, due to the comparatively smaller size of this organization with only 400 posts subject to geographical distribution. FAO 45. Among the United Nations organizations, FAO is the only one which uses a formula based on the contribution factor and on a point system per grade. In this system, each geographical post represents a number of points, with more points attributed to higher-graded posts, according to the following scale: P-1 = 1 point, P-2 = 2 points, P-3 = 4 points, P-4 = 6 points, P-5 = 8 points, D-1 and D-2 = 10 points, and ASG and DDG = 15 points. The base figure, expressed in points, corresponds to the total number of points attributed to all geographical posts filled at a set date. The minimum lower range of posts attributable to small contributors is set at one post. 46. The determination of the geographical representation results from the combination of these parameters, according to the formula described here below. C n = mid-point, where C n is the Percentage of contribution of country n to regular budget and x Number of points corresponding to grades of posts filled by nationals n 100 Total number of points of all posts filled Where X/100 is the percentage of actual points representation (not posts) of Member State n. IAEA 47. IAEA has officially no quota system for its geographical distribution. However, the importance of recruiting staff on as wide a geographical basis as possible is stipulated in the IAEA Statute and in its Staff Rules. In practice, IAEA operates, unofficially and internally, a geographical

12 page 11 distribution system based on the percentage of contributions of Member States to the regular budget. Possible modifications to UNESCO s methodology and impact Option 1: Modification of the base figure 48. A possible modification to the UNESCO formula would concern the base figure of 850 geographical posts, which is in use since 1 January 1990, 7 and includes all regular budget Professional and above posts, with the exception of language posts (see para. 29). An increase of this base figure could, however, only be justified by an increase of the number of posts approved under the regular budget. 49. Another possible modification of the base figure would concern the inclusion of posts funded from extrabudgetary sources. This option, however, is not recommended, given the time-bound and donor-specific nature of these posts. Such inclusion would, in fact, represent a departure from the United Nations common system. WHO, the only United Nations agency which included some extrabudgetary posts in its base figure, is now renouncing this isolated practice. 8 Option 2: Modification of the percentages attributed to the membership and to the contribution factors 50. The percentage attributed to the membership and contribution factors in UNESCO have been modified on three occasions, to reach their current level of 65% and 35% respectively. To reduce the gap between the UNESCO and the United Nations Secretariat formulae, the membership factor could be decreased (to 60% or 55%) and the contribution factor increased accordingly (to 40% or 45%). 9 Modification of the membership and contribution factors applied to UNESCO 34 Non-represented Table I Geographical distribution with UNESCO current formula (January 2003) 23 Over-represented 57 Under-represented 74 Normally represented 7 Cf. 25 C/Resolution 40, op. cit. 8 This issue was discussed in previous Executive Board sessions (17th, 92nd and 160th), which concluded that there were no grounds for including posts financed by extrabudgetary resources within the system of the geographical distribution. 9 The former Director-General expressed his intention to bridge at least half of this gap at the 147th session of the Executive Board (147 EX/41).

13 page 12 Table Ia UNESCO formula with 60% membership and 40% contribution Table Ib UNESCO formula with 55% membership and 45% contribution 34 Nonrepresented 25 Overrepresented 34 Nonrepresented 27 Overrepresented 61 Underrepresented 68 Normally represented 63 Underrepresented 64 Normally represented 51. As shown in Table Ia and Table Ib above, the application of these formulae have a negative impact on the level of normal representation (from 74 to 68 or 64) with a slight increase in the number of over- (from 23 to 25 or 27) and under-represented (from 57 to 61 or 63) countries. In both scenarios, the countries affected are small contributors which, through a decrease of their midpoint and quotas, become over-represented, whereas a few high contributors, benefiting from an increase of their mid-point, become under-represented. These results are due to the reduction of the membership factor and the subsequent increase of the contribution factor which, comparatively, advantages the highest contributors. 52. The results of the application of both these formulae to UNESCO s current situation, shown in the simulations above, seem to indicate that such modifications to the membership and contribution factors do not significantly affect the overall geographical distribution. It should however be underlined that the application of these formulae (reduction of the membership factor and increase of the contribution factor) results, for the smallest contributors, in a reduction of their maximum upper range from four to three posts while the minima lower range is not affected (maintained at two posts). Such a reduction could, in the future, lead to more over-representation of small contributors, which are at the limit of their upper range (see in Annex V and Annex VI, the detailed list by country of these simulations). Option 3: Introduction of a population factor of 5% combined with a membership factor of 60% or 55% 53. Some Member States have stressed the importance of the size of the population, and governing bodies have expressed this concern on several occasions. 10 In the simulations below, which are variants to the current UNESCO formula, a population factor of 5% is introduced, as follows: in Table IIa with a membership factor reduced from 65% to 60% and an unchanged contribution factor of 35% and in Table IIb with a membership factor reduced from 65% to 55% and a contribution factor increased to 40%. 54. The 5% population factor would, for UNESCO, represent a total of 42.5 posts to be apportioned among 188 countries. The simulations below show that with a 5% population factor, the global impact on the geographical distribution is an increase in the number of under-represented countries and a decrease in the number of normally represented countries. In both scenarios, the population factor affects the two most populated countries, i.e. China and India, as it increases their 10 Cf. 140 EX/Decision 7.6, 141 EX/Decision 8.5 and 145 EX/Decision 7.6.

14 page 13 quota (mid-point) by, respectively, nine and eight posts. Ten other countries have their mid-point increased by one post and the rest of the Member States are practically not affected. Table II: Application of a 5% population factor to UNESCO s formula Geographical distribution with UNESCO current formula (January 2003) Non-represented Overrepresented 57 Underrepresented 74 Normally represented 34 Nonrepresented Table IIa UNESCO formula with 60% membership, 35% contribution and 5% population factors 23 Overrepresented 34 Nonrepresented Table IIb UNESCO formula with 55% membership, 40% contribution and 5% population factors 26 Overrepresented 63 Underrepresented 68 Normally represented 64 Underrepresented 64 Normally represented 55. The reduction of the membership factor results, for the smaller contributors, in the decrease of their lowest maxima from four to three posts, while the minima of two posts is not affected. The increase of the contribution factor (from 35% to 40%) results, for the highest contributors, in an increase of their mid-point (see in Annex VII and Annex VIII, the detailed list by country of these simulations). Option 4: Introduction of a population factor of 5% combined with a membership factor of 40% and a contribution factor of 55% (United Nations Secretariat formula) 56. Another scenario would consist in combining the introduction of a population factor with more significant changes in the membership and contribution factors, where the contribution factor would be greater than the membership factor. To this effect, a simulation was made with the methodology applied by the United Nations Secretariat, which applies a membership factor of 40%, a contribution factor of 55% and a population factor of 5% to its base figure. (Table IIIb).

15 page 14 Table III: Application of the United Nations Secretariat formula to UNESCO 11 Table IIIa Geographical distribution with UNESCO current formula (January 2003) Table IIIb Geographical distribution with United Nations Secretariat formula (40% membership, 55% contribution and 5% population factors) 34 Nonrepresented 23 Overrepresented 34 Nonrepresented 17 Overrepresented 57 Underrepresented 74 Normally represented 26 Underrepresented 111 Normally represented 57. The most significant impact of the application of the United Nations formula, as illustrated in Table IIIb above, is the substantial increase of the number of normally represented countries (from 74 to 111) and a sizeable decrease of the number of under-represented countries (from 57 to 26). With this formula, 40 countries currently under-represented would become normally represented. 58. This positive evolution results mostly from the fact that in this scenario, due to the reduced membership factor (to 40%), the minimum lower limit is reduced from two posts to one post, which means that the minimum threshold for normal representation is one post. As a result, a significant number of countries, which are currently under-represented with one staff member, would become normally represented. This scenario would in particular affect small contributors (see in Annex IX, the detailed list by country of this simulation). Option 5: Modification of the lowest minima for low population countries (under 500,000 inhabitants) 59. This scenario envisages the reduction of the minimum lower limits for the low population countries (under 500,000) to one post instead of two while maintaining the current UNESCO formula (65% for membership and 35% for contribution). The lowest maxima would be maintained at four posts, thus setting the range for normal representation for these countries from one to four posts, instead of two to four posts. 60. In such a scenario, one post would therefore be sufficient, for very low population countries, to be considered as normally represented. The rationale behind this scenario is to acknowledge the fact that for those countries with a population of less then 500,000 inhabitants, the threshold of one post to be normally represented appears to be a realistic target. 61. With this option, 33 Member States with a population of less than 500,000 would be concerned (nine under-represented countries, seven normally represented countries and 17 nonrepresented countries). As shown in Table IVa below, nine under-represented Member States 11 In this simulation, the United Nations formula is applied to the UNESCO base figure of 850 geographical posts.

16 page 15 (Luxembourg, Suriname, Maldives, Bahamas, Barbados, Sao Tome and Principe, Grenada, Equatorial Guinea and Monaco) would become normally represented, since these countries have already one post occupied by one of their nationals. In the future, normal representation would be more easily achieved (through the recruitment of one of their nationals, instead of two) for the 17 Member States currently non-represented (see lists in Annex X and XI). Table IV: Application of the current UNESCO formula with a modification of the minima for low population countries Table IVa Geographical distribution with UNESCO current formula (January 2003) 34 Nonrepresented 23 Overrepresented Table IVb Geographical distribution with UNESCO current formula and a minima for low population countries 34 Nonrepresente d 23 Overrepresente d 57 Underrepresented 74 Normally represented 48 Underrepresente d 83 Normally represente d Option 6: Introduction of a population factor of 5% combined with a membership factor of 60%, a contribution factor of 35% and a modification of the minima for low population countries (under 500,000 inhabitants) 62. This scenario combines a 60% membership factor, a 35% contribution factor and a 5% population factor (i.e. Option 3) with the introduction of a lowest minima of one post for the lowest population countries (see paras. 57 to 59). The introduction of such a minima for the low population countries confirms the trend already observed in Option 5, i.e. a shift from underrepresentation towards normal representation for the countries concerned. On the other hand, the introduction of a 5% population factor contributes to an increase in the number of under-represented countries. As indicated in paragraph 52, the population factor mainly impacts the two most populated countries, i.e. China and India, as it increases their quota (mid-point) by, respectively, nine and eight posts. Ten other countries have their mid-point increased by one post. This formula, by reducing the membership factor, would however affect the smaller contributors by decreasing their lowest maxima from four to three posts (see in Annex XII, the detailed list by country).

17 page 16 Table V: Application of a 5% population factor to UNESCO s formula with a membership factor of 60% and a contribution factor of 35% combined with a modification of the minima for low population countries 34 Nonrepresented 57 Underrepresented Table Va Geographical distribution with current UNESCO formula (January 2003) 23 Overrepresented 74 Normally represented 34 Nonrepresented 54 Underrepresented Table Vb Geographical distribution with UNESCO formula with 60% membership, 35% contribution, 5% population factor and a minima for small populated countries 23 Overrepresented 77 Normally represented Option 7: Introduction of a post-weighting system 63. FAO is the only agency in the United Nations system which currently uses a post-weighting system. The FAO formula includes a contribution factor and requires an attribution of points to each post, according to the grade levels (cf. paras ). It does not include a membership or a population factor. There is no fixed base figure in such a system, as the calculation is based on the number of filled posts, which varies every month. 64. Applied to UNESCO, the FAO formula would result in a significant increase of overrepresented countries (from 23 to 75), and a sizeable reduction (by 30%) of the number of normally represented Member States (from 74 to 59) (see Table VIb below). Table VI: Application of the FAO formula to UNESCO Table VIa Geographical distribution with current UNESCO formula (January 2003) Table VIb Geographical distribution when applying the FAO formula 34 Nonrepresented 23 Overrepresented 34 Nonrepresented 75 Overrepresented 57 Underrepresented 74 Normally represented 20 Underrepresented 59 Normally represented ٦5. This system has the advantage, through the point system, of giving consideration to the relative difference of importance between a P-1 and a D-2 post held by a national of a country. It suffers, however, from two major inconveniences: the difficulty for management and Member States to translate a priori the points into a clear number of posts to fix a target for recruitment or

18 page 17 representation purposes, and its excessive complexity (see in Annex XIII, the detailed list by country of this simulation). Conclusions 66. The principle of equitable geographical distribution, as it derives from the universal character of the United Nations, is fundamental to UNESCO. In the absence of a definition of equity, United Nations agencies have set up empirical systems to determine and measure what constitutes an ideal geographical representation within their secretariats. The systems in use today in each agency are often the result of a gradual evolution, and are a reflection of each organization s specific context. 67. These systems have common features: a base figure, i.e. a defined number of posts to which the geographical distribution applies; and a quota construed as a range of posts with a minimum and a maximum number of posts attributed to each Member State, with a mid-point representing the ideal representation. They also use common parameters for the calculation of quotas, based on the membership, the size of contribution, and in some cases the size of the population. 68. Comparative data shows that, beyond the basic common features shared by most of the agencies, there are variations in the systems, primarily in the size of the share attributed to the membership and contribution factors, as well as in the use of a population factor. A notable variation is the use of post-weighting system, which is only used by one agency (the FAO). 69. In UNESCO the membership factor has a greater share than the contribution factor, which is quite unique in the United Nations system today. 12 Over the past 10 years, however, there has been a trend towards a gradual decrease of the membership factor, in favour of the contribution factor, to reach the current ceiling of 65%-35%. 70. The case could be made for a further refining of the formula applied by UNESCO, by giving consideration to the demographic profile of Member States, through the introduction of a population factor in the same limited proportion as the other United Nations agencies (i.e. 5%). The introduction of a population factor would contribute to increase the accuracy of the current formula and for some members, its equity, by recognizing the importance of the size of the population of a country. This formula would contribute to a decrease to the current number of normally represented countries and an increase of the under-represented countries. 71. In taking into account the demographic factor, specific attention could also be given to the very low population Member States (less than 500,000 inhabitants), and an acknowledgment made to the extreme difficulty of achieving a target of a normal representation of two posts for such countries. A minimum lower limit of one post would be more appropriate, and more in line with the demographic reality and with the availability of manpower in these countries. 72. The application of a post-weighting principle would not be a recommended option for UNESCO. Besides being overtly complex, this option would not improve the current situation of the geographical distribution, as shown in the simulation with the point system used by FAO. This system has the merit, however, of recognizing the weight of grades in the geographical distribution. Its limited, empirical use could be justified in the recruitment for high-level managerial positions (ADGs), with the view to reaching an equitable regional distribution at the highest levels of the Secretariat. 12 Only UPU, a very small-sized agency, has a higher membership factor (100%) than UNESCO.

19 page On balance, the Secretariat would recommend the adoption of the formula outlined in Option 6, i.e. the introduction of a 5% population factor, with a membership factor of 60% (from 65%) and a contribution factor of 35%, combined with a reduction of the lowest minima from two to one post, for countries with a population of less then 500,000. The advantage of this option is that it introduces limited changes to the current formula and maintains a high-level membership factor (which is a distinctive feature of UNESCO) while taking into account a very important parameter, which is the demographic factor; this option has the added advantage of taking into account both ends of the population spectrum, and thereby recognizing the specific reality of very high population and very low population countries. Draft decision 74. The Executive Board may wish to adopt a decision along the following lines: The Executive Board, 1. Recalling 30 C/Resolution 72 and 164 EX/Decision 6.8, 2. Having considered document 166 EX/32, 3. Takes note of the situation of the geographical distribution on 1 January 2003 and the measures proposed; 4. Also takes note of the information provided by the Director-General on the methodologies used in the United Nations system; 5. Recommends that the General Conference at its 32nd session adopt the formula as described in Option 6, i.e. a membership factor at 60%, a contribution factor at 35%, a population factor at 5%, and a lowest minima of one post for the low population countries of less than 500,000 inhabitants; 6. Invites the Director-General to submit to it at its 169th session a report on the situation concerning the geographical distribution of the staff.

20 Annex I Source HRM/MIS 1 January 2003 ANNEX I GEOGRAPHICAL DISTRIBUTION Over-represented In balance Under-represented Non-represented ALGERIA ALBANIA 0 AFGHANISTAN ANGOLA BELGIUM ANDORRA ARMENIA ANTIGUA AND BARBUDA BENIN ARGENTINA AUSTRIA AZERBAIJAN CANADA AUSTRALIA 0 BAHAMAS BAHRAIN DENMARK BANGLADESH BARBADOS BELIZE EGYPT BHUTAN BELARUS BOLIVIA ETHIOPIA - BOSNIA AND HERZEGOVINA CAMBODIA BOTSWANA FRANCE BRAZIL CENTRAL AFRICAN REPUBLIC CAPE VERDE INDIA BULGARIA COMOROS COOK ISLANDS JORDAN BURKINA FASO CROATIA CYPRUS LEBANON BURUNDI CZECH REPUBLIC MOROCCO CAMEROON DOMINICAN REPUBLIC ICELAND PERU CHAD EL SALVADOR IRAQ = PHILIPPINES CHILE EQUATORIAL GUINEA KIRIBATI ROMANIA CHINA ERITREA LATVIA RUSSIAN FEDERATION COLOMBIA ESTONIA MARSHALL ISLANDS SENEGAL CONGO FIJI MICRONESIA SPAIN CONGO, DEMOCRATIC REPUBLIC OF 0 GAMBIA MONGOLIA SRI LANKA COSTA RICA GERMANY MYANMAR SUDAN COTE D'IVOIRE GHANA NAURU TUNISIA CUBA GRENADA NIUE URUGUAY DJIBOUTI GUINEA-BISSAU OMAN ZIMBABWE DOMINICA 0 HONDURAS PALAU ECUADOR ISRAEL PANAMA - FINLAND JAPAN PARAGUAY FORM. YUGOSLAV REP. OF MACEDONIA KAZAKHSTAN QATAR GABON KOREA, REPUBLIC OF SAN MARINO GEORGIA KUWAIT (1) SAINT VINCENT AND GRENADINES GREECE 0 KYRGYZSTAN SOLOMON ISLANDS GUATEMALA LAO PEOPLE'S DEMOCRATIC REPUBLIC TAJIKISTAN GUINEA LESOTHO TONGA GUYANA LIBERIA TURKMENISTAN HAITI LITHUANIA TUVALU HUNGARY LUXEMBOURG UNITED ARAB EMIRATES INDONESIA MALAYSIA VANUATU IRAN, ISLAMIC REPUBLIC OF IRELAND ITALY JAMAICA KENYA KOREA, DEM. PEOPLE'S REPUBLIC OF LIBYAN ARAB JAMAHIRIYA MALDIVES MOLDOVA MONACO NEPAL NIGER NORWAY PORTUGAL

21 Annex I page 2 Over-represented In balance Under-represented Non-represented MADAGASCAR MALAWI MALI MALTA MAURITANIA MAURITIUS MEXICO MOZAMBIQUE NAMIBIA NETHERLANDS NEW ZEALAND NICARAGUA NIGERIA PAKISTAN PAPUA NEW GUINEA RWANDA SAO TOME AND PRINCIPE SAUDI ARABIA SIERRA LEONE SLOVAKIA SLOVENIA SOMALIA SOUTH AFRICA SURINAME SWAZILAND SWITZERLAND TURKEY 0 UKRAINE VIET NAM ZAMBIA POLAND SAINT KITTS AND NEVIS SAINT LUCIA SAMOA SEYCHELLES SWEDEN SYRIAN ARAB REPUBLIC THAILAND TOGO TRINIDAD AND TOBAGO UGANDA UNITED KINGDOM UNITED REPUBLIC OF TANZANIA UZBEKISTAN VENEZUELA YEMEN YUGOSLAVIA (2) 57 (2) 34 (1) Young Professional on leave without pay. (2) Including the 2003 Young Professional intake. Total: 188 * The symbols preceding certain Member States indicate their representation status the previous month (+: Over-represented; =: In balance; -: Under-represented; 0: Non-represented).

22 Annex II ANNEX II Geographical distribution of staff by category of posts MEMBER STATES NORMALLY REPRESENTED Member States Total D & above % of the total Total Prof. % of the total 1 ALBANIA 0 0% 2 100% ANDORRA 0 0% 2 100% ARGENTINA 2 25% 6 75% AUSTRALIA 5 50% 5 50% BANGLADESH 0 0% 3 100% BHUTAN 0 0% 2 100% BOSNIA AND HERZEGOVINA 0 0% 2 100% BRAZIL 3 30% 7 70% BULGARIA 0 0% 3 100% BURKINA FASO 0 0% 3 100% BURUNDI 1 33% 2 67% CAMEROON 0 0% 2 100% CHAD 0 0% 2 100% CHILE 2 40% 3 60% CHINA 1 14% 6 86% COLOMBIA 1 17% 5 83% CONGO 0 0% 3 100% CONGO, DEMOCRATIC REPUBLIC OF 0 0% 2 100% COSTA RICA 0 0% 2 100% COTE D'IVOIRE 0 0% 2 100% CUBA 1 25% 3 75% DJIBOUTI 0 0% 2 100% DOMINICA 0 0% 2 100% ECUADOR 1 50% 1 50% FINLAND 0 0% 4 100% FORM. YUGOSLAV REP. OF MACEDONIA 0 0% 2 100% GABON 0 0% 2 100% GEORGIA 0 0% 2 100% GREECE 1 25% 3 75% GUATEMALA 0 0% 2 100% GUINEA 2 50% 2 50% GUYANA 1 33% 2 67% HAITI 0 0% 2 100% HUNGARY 1 50% 1 50% INDONESIA 0 0% 2 100% IRAN, ISLAMIC REPUBLIC OF 0 0% 3 100% IRELAND 0 0% 4 100% ITALY 1 5% 21 95% JAMAICA 0 0% 2 100% KENYA 0 0% 3 100% KOREA, DEM. PEOPLE'S REPUBLIC OF 0 0% 3 100% LIBYAN ARAB JAMAHIRIYA 1 33% 2 67% MADAGASCAR 0 0% 2 100% Total P+D Max. Min.