United Nations Educational, Scientific and Cultural Organization Executive Board

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1 ex United Nations Educational, Scientific and Cultural Organization Executive Board Hundred and fifty-fifth Session 155 EX/29 PARIS, 29 July 1998 Original: French/English Item 7.5 of the provisional agenda GEOGRAPHICAL DISTRIBUTION OF THE STAFF SUMMARY In accordance with 29 C/Resolution 78 (November 1997) and 152 EX/Decision 8.5 (October 1997), the Director-General submits his annual report on trends in the geographical distribution of the Secretariat staff at 1 June Decision proposed: paragraph 26.

2 155 EX/29 I. INTRODUCTION 1. This document is submitted in pursuance of 25 C/Resolution 40, 29 C/Resolution 78 and 152 EX/Decision 8.5 inviting the Director-General to continue to report to the Executive Board once a year on the situation regarding the geographical distribution of staff members (occupying posts subject to the principle of geographical distribution) and on the implementation of the medium-term objectives for a better geographical balance. 2. To assist in understanding this document Annex I contains a glossary of technical terms and a table listing the most relevant decisions concerning geographical distribution adopted by the Executive Board since its 56th session. Annex II contains the different tables. The table on the first page of Annex II shows the geographical representation evolution by group between 1 July 1997 and 1 June The tables on pages 2 to 7 show the geographical evolution of each country. The table on page 8 shows all movements (since 1 July 1997) affecting the situation regarding geographical representation. A list of countries whose status of representation has changed is given in the table on page 9 of Annex II. This information is broken down by regional group, status of representation (+, =, -,0) 1 and by the direction of the change (in, out). The table on page 10 of Annex II shows the level of over- or underrepresentation of over-represented and under-represented countries as compared with the upper and lower limits of their respective quotas. II. TRENDS IN THE GEOGRAPHICAL DISTRIBUTION OF STAFF SINCE 1 JULY 1997 (ANNUAL REPORT) A. General trends 3. The number of Member States (186) has not changed since 1 July Table 1 below gives a retrospective view of trends in the overall situation regarding geographical distribution since 1 July It should be noted that in July 1994 there were 182 Member States, 135 of which (74.2 per cent) were represented; in July 1997 there were 186 Member States, 145 of which (78 per cent) were represented; and since 1997 the number of Member States has remained unchanged at 186, of which 151 are represented (81.2 per cent). It can thus be seen that over the four-year period covered, and with four more Member States, the percentages of countries represented and of countries unrepresented in the Secretariat have changed considerably (81.2 per cent as against 74.2 per cent, and 18.8 per cent as against 25.8 per cent respectively). Despite difficulties, the Organization has succeeded not only in improving the situation but in creating a firm basis for progress towards more equitable geographical distribution. Table variation as compared with Level of representation Above range (+) 19 (10.4%) 25 (13.4%) 28 (15.1%) +3 Within range (=) 80 (44%) 80 (43%) 82 (44.1%) +2 Below range (-) 36 (19.8%) 40 (21.5%) 41 (22%) +1 Total represented 135 (74.2%) 145 (78%) 151 (81.2%) +6 Unrepresented (0) 47 (25.8%) 41 (22%) 35 (18.8%) -6 Total Member States 182 (100%) 186 (100%) 186 (100%) 1. +: over-represented; =: within range; -: under-represented; 0: unrepresented.

3 155 EX/29 - page 2 4. Examination of Table 1 shows a significant decrease in the number of unrepresented countries (35 as against 41, 11 months ago) during the period covered by the present report (1 July June 1998). In other words six more countries were represented. Only two changes in the category of representation (Portugal and Hungary) were simply due to variations in the upper and lower limits of Member States quotas. 5. The balance of positive actions ( in, that is to say entries into the geographical category: appointments, transfers and promotions from the General Service category to the Professional category) against negative ones ( out, that is to say departures from the geographical category: separations and movement to another category) was 83 as against 65 (a difference of +18 in terms of individuals) during the period covered by the preceding report (2 June 1996 to 1 July 1997, documents 152 EX/34 and 29 C/41). The balance for the period covered by this report is more substantial - 97 positive actions (52 appointments and 45 other entries into the geographical distribution category) as against 51 negative actions (39 separations and 12 other movements out of the geographical distribution category), i.e. a difference of +46 units (individuals). It is obvious that these trends with respect to individuals are in direct relation with the corresponding actions in regard to posts. In fact, during the period covered 170 posts subject to geographical distribution were created as against 123 abolished (a net variation of +47 posts). As regards the 97 actions mentioned above, 52 (30 appointments and 22 other movements) were taken to fill the posts created during the same period. Conversely, in respect of posts already in existence, there were 22 appointments and 23 other movements (45 in all) The in and the out actions had a positive effect on the position of under- and unrepresented states: 17 in and two out and seven in and none out respectively 3 (see tables in Annex II, page 8). In other words, there were more recruitments (external and internal) than departures (separations and transfers to non-geographical posts). This is due on the one hand to a decrease in the number of appointments of nationals from over-represented states (13 external appointments as against 18 for the preceding period) and, on the other, to nonrecruitment (external or internal) of nationals from non-member States (as against seven cases during the preceding period). Thirteen young professionals were also appointed under the Young Professional Programme, and there were ten promotions from the General Service category (GS) to the Professional category and above ( Professional ), etc. B. Over-represented countries 7. The number of over-represented Member States has increased by three (from 25 to 28) since 1 July Sweden, United Kingdom, Hungary, Cuba and the Philippines entered this category while China and Kenya moved to the category of within-range countries. 8. It should be noted that 18 of the 28 over-represented Member States are overrepresented by no more than four units: nine by one unit and nine others by two to four units. These 18 Member States account for only 30 units beyond the upper limit of their respective quotas. However, the ten other countries in the over-represented category account among them for 131 units over and above their ceilings. 2. It is a coincidence that there were 52 appointments and 45 other actions concerning individuals and also 52 concerning new posts and 45 concerning already existing posts. 3. It should be noted that no negative action can occur in respect of an unrepresented country.

4 155 EX/29 - page 3 C. Within range countries 9. The number of countries within range has increased by two (from 80 to 82) since 1 July This change was marked by the following movements: Switzerland, Yugoslavia, Guatemala, Nicaragua, Trinidad and Tobago, Fiji, Djibouti, Namibia and Zimbabwe, previously under-represented, and China and Kenya, previously over-represented, entered that category; Nine countries previously in that category are now either over-represented (Sweden, United Kingdom, Hungary, Cuba and the Philippines), or under-represented (Malta, Portugal, El Salvador and Jamaica). 10. It should be noted that 36 of the Member States within range are at the lower limit of their respective quotas and only 15 at the upper limit. D. Under-represented countries 11. The number of Member States falling below the lower limit of their quota has increased by one since 1 July 1997 (41 as against 40). This is the result of various movements during the period concerned. Seven previously unrepresented Member States (Andorra, Estonia, Granada, Lao People s Democratic Republic, Samoa, Sao Tome and Principe and Uzbekistan), and four previously within-range Member States (Malta, Portugal, El Salvador and Jamaica), are now under-represented. Among the 41 states under-represented as at 1 June 1998, 37 fall only one unit below range, three fall two units below and one falls 17 units below. E. Unrepresented countries 12. As indicated in paragraph 4, the number of unrepresented countries has significantly declined (from 41 to 35) in the past 11 months. As we have seen in the preceding paragraphs, seven countries have moved to another category. The reason for this marked improvement is that the number of positive movements exceeded the number of negative movements, with regard to geographical distribution. For example, the Organization recruited new staff, including five young professionals, and promoted one staff member from the General Service category to the Professional category. One Member State (Bahamas) is now unrepresented because the only staff member from that country took leave without pay during the period. F. Regional groups 13. The following table shows the changes in Member States situations during the period covered by this report, broken down by status of representation and regional group: Table 2 Groups* Above range (+) Within range (=) Below range (-) Unrepresented (0) Total Group I Group II Group III Group IV Group V(Ar) Group V (Af) Total * 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(Af) - Africa.

5 155 EX/29 - page 4 As shown in Table 2, Group III takes the largest share (seven) of the 28 over-represented countries. It is followed by Group V (Arab States), with six countries above range, as during the previous period. Group III and Group IV have the highest number of under-represented countries (nine for each group), while Group V (Arab States) and Group II have fewer under-represented countries, with three and four respectively out of a total of forty-one. The number of withinrange countries for Group V (Africa) increased from 26 as at July 1997 to 30, making it the group with the highest number of countries in this category. Lastly, Group IV has the highest number of non-represented countries (13 out of 35) while Group I has only one. 14. It should be noted that the presentation of the situation by regional grouping, which is the usual practice in the report by the Director-General on geographical distribution, in no way implies any official recognition of regional quotas, which remains a purely unofficial concept. 4 The principle of individual quotas for each Member State is the sole official criterion of the Organization. In this annual report, Member States are divided into regional groupings solely for statistical purposes. 15. Nevertheless, in view of the concern about the composition of the regional groups 5 expressed by some Members of the Executive Board at the 152nd session, it is also possible to examine the categories of geographical distribution by subgroup. This shows that out of the 35 Member States which were not represented as at 1 June 1998, 21 (60 per cent) belong to the following four subgroups: Caribbean 4 (out of 14 Member States in the subgroup) Central Asia 3 (out of 7 Member States in the subgroup) Pacific 10 (out of 18 Member States in the subgroup) Gulf States 4 (out of 7 Member States in the subgroup) Total: 21 (out of 46 Member States) In other words 21 Member States, 11 per cent of the total, account for 60 per cent of the total number of non-represented states. This calls for more sustained efforts with regard to these subgroups. 16. Table 3 below summarizes the trends in the number of staff occupying posts subject to geographical distribution between 1 July 1997 and 1 June 1998 within the different regional groups: 4. Certain agencies of the United Nations common system do not apply national quotas, but only use regional quotas. For the most part, these are agencies which do not have a sufficient number of geographical posts to ensure that national quotas can be met. 5. Some representatives to the Executive Board feel that it does not accurately reflect the geocultural multiplicity in certain geographic groups.

6 155 EX/29 - page 5 Table 3 1 July June 1998 Variation Group I 298* 317** +19 Group II Group III Group IV 109*** 116*** +7 Group V(Ar) Group V(Af) Total * Including 36 United States nationals. ** Including 34 United States nationals. *** Including 2 Singapore nationals. 17. If the figures shown above in Table 3 are compared with ideal quotas for regional groups (total of the mid-points of the countries composing each group), the disparities are as follows: Table 4 Situation at 1 July 1997 Situation at 1 June 1998 No. of staff Ideal quota (mid-point) Disparity in relation to midpoint No. of staff Ideal quota (mid-point) Disparity in relation to midpoint Group I Group II Group III Group IV Group V(Ar) Group V(Af) Total The changes that have occurred show the combined effect of several different events having either a direct, immediate impact on geographical distribution (appointments, separations and transfers) or an indirect, delayed effect (changes in the number of Member States or in the assessment of contributions, etc.). After bringing all these factors up to date, the situation with regard to geographical representation appears as shown in Annex II, pages 1 to 7, where the changes in the geographical representation of each Member State may be seen, both within its regional group and in relation to the Member States as a whole. 19. From Table 4 above, and also from the tables in Annex II, it will be seen that: the under-representation of Groups II, III and V (Africa) has been reduced, mainly as a result of a series of movements that have generally made for a more balanced geographical distribution ( as against ; as against and as against respectively); there has been an increase ( as against and as against respectively) in the over-representation of Groups I and V (Arab States) as the number of positive movements has exceeded negative movements;

7 155 EX/29 - page 6 despite a clearly positive showing in terms of actions, Group IV remains at practically the same level of under-representation owing to the increase in the upper and lower limits of the quotas as a whole ( as against last year). III. CONCLUSION 20. In conclusion, despite the real difficulties which remain, the changes in geographical distribution within the Secretariat that have occurred are encouraging. The application of a rigorous policy guided by the following basic principles has acquired greater importance in the present situation: maintenance of a margin for external recruitment, so as to allow the appointment of nationals of unrepresented or under-represented countries whenever possible; maintenance of the programme for the appointment of young people from unrepresented or seriously under-represented countries; non-appointment, as far as possible, of outside candidates from over-represented countries, or countries which are likely to become so, to posts subject to the principle of geographical distribution; observance of the criteria of integrity, efficiency and technical expertise when recruiting staff, as stipulated in Article VI of the Organization s Constitution. 21. Nevertheless, the progress achieved is only a beginning. A great deal still has to be done to achieve more conclusive results. In fact, as things now stand, to ensure that no country is unrepresented it would be necessary to make provision for at least 35 recruitments. If one also takes into account the degree of under-representation (60 units) and over-representation (161 units, with one Member State alone accounting for 64 units) as at 1 June which should be reduced to the normal level of representation - the task may seem enormous. At the current rate (a net balance of approximately 20 positive measures per year overall), the process of improvement of geographical representation could take at least five years, and it could take longer significantly to reduce the degree of over-representation. 22. To obtain the desired results, effective partnership between the main players - the Secretariat and the Member States - must be achieved in efforts to secure the best applicants, while bearing in mind the high standards of integrity, efficiency and technical expertise required by Article VI.4 of the Constitution. The table on page 11 of Annex II shows the number of applications recorded from 1 July 1997 to 1 June 1998 according to whether the countries of origin were above range, within range or unrepresented. The number of applications from un- and under-represented countries was lower than that from Member States within and above range. However, comparison with the period 1 July 1995 to 1 June 1996 shows that the number of applications from un- and under-represented countries has risen (from 1 to 2 and 3 to 5 respectively). This relative improvement is due to the Director- General s constant efforts to increase the number of applications from these countries. During the same period, the number of applications received from countries within or above range has declined (from 15 to 12 and 51 to 28 respectively). 23. To achieve a better balance in the submission of applications from the various categories of Member State, several practical measures must be taken. One such measure is the dispatch of missions from the recruitment section to unrepresented and under-represented

8 155 EX/29 - page 7 countries in order to assist national authorities inter alia in devising methods of seeking desirable applications for vacant posts. 6 At least one other recruitment mission will be dispatched to the unrepresented and under-represented countries during the second half of Another practical measure is to continue to give priority, as far as possible, to applicants who are nationals of unrepresented and under-represented countries from the early stages of the recruitment procedure. Particular steps have been taken to that effect since December The Secretariat will also place more emphasis on recruitment issues at training sessions for new secretaries-general of the National Commissions. Particular stress will be laid on ways of publicizing vacancies and on procedures for the shortlisting of applicants at the national level. 25. In addition, the policy of limiting transfers from a non-geographical post to a geographical one must be applied more rigorously. Only promotions from the General Service category to the Professional and higher category deserve to be maintained. This policy forms part of the implementation of the career development policy. 26. The Executive Board may wish, in the light of the considerations set out in this document, to adopt the following decision: The Executive Board, 1. Recalling 29 C/Resolution 78 and 152 EX/Decision 8.5, 2. Having considered document 155 EX/29 and, in particular, the information on trends in geographical distribution, 3. Notes with satisfaction the trends in the geographical distribution of the staff; 4. Invites the Director-General to apply the principles set out in document 155 EX/29 with a view to improving the geographical distribution of the staff; 5. Invites the Director-General to submit a report on the situation concerning the geographical distribution of the staff to it at its 157th session. 6. A mission was sent by the Bureau of Personnel in December 1997 to seriously under-represented countries (including Japan).

9 155 EX/29 Annex I ANNEX I GLOSSARY OF TECHNICAL TERMS Base figure Contribution factor Disparity, weighted disparity Equitable (representation, geographical distribution) Geographical posts (posts subject to the principle of geographical distribution) Internal movement (of staff) Major factor(s) Membership factor Method of calculation Total number of geographical posts fixed as the basis for calculating the quotas. In accordance with established practice, this number is slightly higher than the number of administratively existing posts (so as to cover possible fluctuations). Concept expressed as a fraction or a percentage determining that part of the base figure to be distributed among Member States on the basis of their assessed contributions to the regular budget. Difference between the number of a state s nationals and its mid-point (preceded by the mathematical sign +/-). For the weighted disparity - this is the same thing divided by the value of the mid-point. Situation when the number of nationals is as close as possible to the mid-point (ideal representation). Posts in the Professional category and above financed from the regular budget of the Organization, except for so-called language posts (interpreters, translators and revisers). Posts regarded as semi-linguistic (drafting and editorial staff) are subject to the principle of geographical distribution. In this document the term refers to staff movements which affect geographical distribution (transfer from a nongeographical post to a geographical post and vice versa, promotion from the GS category to the Professional category, departure on/return from unpaid leave, etc.). Movements into the geographical category are accompanied by a + sign, while movements in the opposite direction have a - sign. Term referring to the contribution factor and the membership factor. Right of each Member State to a number of posts (equal for all states). This concept may be expressed as a fraction or as a percentage in determining that part of the base figure to be shared among Member States. Calculation of the quotas begins with the calculation of the mid-points. Since the methodology used by UNESCO is based on two major factors, namely the membership factor and the contribution factor, the mid-point is made up of these two parts. The part of the mid-point corresponding to the

10 155 EX/29 Annex I - page 2 membership factor is equal for all Member States and is fixed as a fraction of that part of the base figure belonging to the membership factor divided by the number of Member States. In the case of the current ratio (70/30) and with 186 Member States, the part of the mid-point belonging to the membership factor is as follows: 850 x The remaining part of the base figure is distributed among Member States in proportion to their contribution to the regular budget: C n x 850 x where C n is the assessed contribution of a Member State n to the regular budget 100 is the constant determined on the basis of the assessed contributions of all Member States. The two parts calculated in this way and then added together for each Member State represent the mid-point (or ideal geographical representation of each Member State). The upper and lower limits of the quotas extend 25 per cent above and below the mid-point (except in the case of the smallest quotas, whose limits are extended to 4/2, 5/2 or 6/2) and rounded off to the nearest whole number. Population or demographic factor Quota Rates of under- or overrepresentation Scale of contributions or assessed contributions Term used to identify that part of the base figure to be distributed among Member States on the basis of their population. Number of posts assigned to a Member State of the Organization under the principle of geographical distribution. It is defined by the desirable mid-point and the applicable range (upper and lower limits of the quota). Quantitative notion used to measure the extent to which representation deviates from the mid-point (ideal situation). It represents the value of the weighted disparity multiplied by the modulus of the disparity (or the square of the disparity divided by the value of the mid-point preceded by the algebraic sign of the disparity). Contribution of a Member State to the regular budget expressed as a percentage.

11 155 EX/29 Annex I - page 3 Situation or status of (geographical) representation Correlation between the number of a Member State s nationals who are staff members and the limits of its quota: (+) over-represented or represented above range (the number is above the upper limit of the quota); (=) within range (the number is within the limits of the quota); (-) under-represented or represented below range (the number is below the lower limit of the quota); (0) unrepresented (no national as staff member). Weighting (system of) System of (geographical) distribution which takes into account the level of the posts occupied by the nationals of each Member State. This system may be applied separately, without affecting the main system. It enables career development to be taken into account in geographical distribution.

12 CHANGES IN THE METHOD OF ESTABLISHING THE QUOTAS ASSIGNED TO THE MEMBER STATES OF UNESCO YEARS PRINCIPLES RANGE/BASE FIGURE OBSERVATIONS EX/Decision 11.5 The contribution of 1 per cent to the budget corresponds to a base figure of 1 per cent of the posts assigned For Member States whose contribution to the budget exceeds 10 per cent, the upper margin of 25 per cent does not have to be applied The minimum quota must not be less than two Max. = MP + 25 per cent Min. = MP - 25 per cent The total number of posts corresponding to the mid-points of all Member States exceeds the number of posts in the base figure C/Resolution 22.1 Increase in the minimum number of posts from 2 to C/Resolution 26.1 Departure from the principle: 1 per cent of the budget 1 per cent of posts Introduction of the principle of recruitment planning with a view to obtaining more equitable geographical distribution C/Resolution 26.1 Gradual widening of range from 2-3 to 2-5 (1 January 1977) then to 3-5 (1 January 1979) Same observation Since the introduction of the principle of recruitment planning with a view to obtaining more equitable geographical distribution, the total number of posts corresponding to the midpoints of all Member States is equal to the number of posts in the base figure Request for a study to streamline the method of calculating quotas (document 104 EX/47) C/Resolution Widening of the range from 3-5 to 2-8 and increase in base figure to 1,100 posts (1 January 1984)

13 YEARS PRINCIPLES RANGE/BASE FIGURE OBSERVATIONS C/Resolution 40 Narrowing of range from 2-8 to 2-6 and decrease in base figure to 850 posts (1 January 1990) Request for study on a more equitable method of calculating ranges for quotas assigned to Member States EX/Decision 7.7 Suspension of the standard governing the system of geographical distribution reserved for Member States whose contribution to the budget exceeds 10 per cent (see 56 EX/Decision 11.5) EX/Decision 8.1 Decision to continue examination of the question of the method of calculation of quotas. Request for a study on this subject for the 140th session of the Executive Board EX/Decision 7.6 The Group of Experts decides not to take into account the population factor in the method of calculating quotas. Request for a study on the introduction of the system of weighting of posts

14 YEARS PRINCIPLES RANGE/BASE FIGURE OBSERVATIONS EX/Decision 8.5 The question of introducing the population factor into the method of calculating quotas is raised again. Request for a new presentation of the various options (for possible modification of the method of calculating quotas) including that adopted in the United Nations which takes into account the population factor accompanied by an evaluation of geographical distribution based on the principle of weighting of posts 142 EX/Decision C/Resolution 32.1 Replacement of the outdated system of ratios (membership and contribution factors) which are automatically established a posteriori, without any fixed limit, by a system involving the a priori setting of reasonable limits (76 per cent for the membership factor and 24 per cent for the contribution factor) Slight narrowing of the minimum range (0.4 per cent of a point in terms of the midpoints) with effect for the smallest contributors (0.01 per cent): 5-2 (instead of 6-2) Decision to maintain the status quo for calculating quotas for geographical distribution, which amounts to 76 per cent membership factor, and 24 per cent contribution factor. Deferment of study of the question of the options until the 144th session of the Executive Board EX/Decision 6.7 Decision to continue examination of the method of calculating quotas. Request for a wide-ranging study (analysis of recruitment over the last four years, information on quotas on the assumption that certain states will return to the Organization). Request for a new presentation of the various options, including taking account of population and the grade of the post (population factor and grade weighting)

15 YEARS PRINCIPLES RANGE/BASE FIGURE OBSERVATIONS 145 EX/Decision 7.6 Decision not to take into account the population factor and grade weighting, decision to recommend the General Conference to progressively improve the present 76/24 formula, taking into account the practices of the other organizations of the United Nations system; invitation to formulate proposals including options aimed at achieving these results EX/Decision C/Resolution 29.2 Slight narrowing of the minimum range with effect for the smallest contributors (0.01 per cent): 4-2 (instead of 5-2) Decision to alter the ratios for the membership factor and the contribution factor to 70 per cent and 30 per cent respectively. Request for the preparation of the next phase of the mediumterm objectives with a view to achieving a more equitable geographical distribution EX/Decision 6.7 Confirmation of the principles set out in the document concerning the medium-term objectives with a view to achieving a more equitable geographical distribution EX/Decision 8.5 Decision to recommend the General Conference to maintain the status quo regarding the ratios for the membership factor and the contribution factor (70 per cent and 30 per cent respectively)

16 YEARS PRINCIPLES RANGE/BASE FIGURE OBSERVATIONS 29 C/Resolution 78 Decision to apply the principles outlined in document 29 C/41 (maintenance of a margin for external recruitment, so as to allow the appointment of nationals of unrepresented or under-represented countries; non-appointment, as far as possible, of candidates from overrepresented countries, or countries which are likely to become so, to posts subject to the principle of geographical distribution) with a view to improving the geographical distribution of the staff, bearing in mind Article VI.4 of the Constitution

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