6 The UN’s post-2015 development agenda and leadership by Stephen Browne and Thomas G. Weiss
The flag-lined approach to the entrance to the United Nations office in Geneva, Switzerland, November 2015. (GODONG/ROBERT HARDING/ NEWSCOM) here is a dramatic fork in the road for the United Na- endorsed a set of eight measurable Millennium Develop- tions and the United States in 2016. But unlike the ment Goals (MDGs) with 18 concrete targets. While pundits late Yogi Berra, the next U.S. administration cannot dismiss the impact of goal setting, it is one of the few ways merelyT “take it” but rather is required to act. While most to aim at improvements and shame governments by holding American media and pundits are focused on international their feet to the fire for poor results or even lackadaisical peace and security and the travails of the Security Council, efforts. much of the rest of the planet is instead often riveted on the While many judged the pursuit utopian, the record since challenges of poverty eradication and sustainable develop- 2000 is better than the generally slower progress in the 1990s ment. A new global push begins in 2016, when everyone will also be eyeing the “election” of the United Nations’ next STEPHEN BROWNE is a Senior Fellow at the CUNY Gradu- secretary-general. ate Center’s Ralph Bunche Institute, where THOMAS G. WEISS is Presidential Professor of Political Science and Di- rector Emeritus. The authors have written extensively about Why new development objectives? the problems and prospects of the United Nations and are At the outset of the 21st century, 150 or so heads of state co-directors of the Future UN Development System Project.
63 6 GREAT DECISIONS 2016 licity for failing to meet international cators, already a quantum leap in range targets undoubtedly motivated at least and ambition from the earlier millenni- some countries to adopt measures that um versions. The panel also laid down they might otherwise have not. two important parameters. First, any A few countries will have achieved new set of goals should build on the all goals, but the majority will have MDGs but have more breadth, includ- fallen short on several. Some, espe- ing concerns about economic growth cially those prone to armed conflict, and jobs, promotion of peace and secu- have not advanced in economic terms rity and inclusive governance. Second, for more than a generation. For them, they should be universal, including all targets will have meant little. And even 193 UN member states in a global part- those countries that are better off in nership that does not distinguish de- 2015 than in 2000 may find it harder veloping from developed countries (or from their improved positions to attain the “global South” from the “North,” in the new goals. UN parlance). A small group of UN staff compiled The panel’s report was the starting the MDGs in a single, succinct package point for exhaustive consultations with- that was measureable and time-bound. in an Open Working Group (OWG) of Although several UN organizations member states, which began delibera- UNDP Administrator Helen Clark and were slow to sign up, they all eventu- tions in 2013. Open consultations have Mbaranga Gasarabwe visit a small-scale mango farm operated by women. Mali, May ally did. The goals were the closest that the merit of seeking wide consensus— 2010. (UNDP/UN PHOTO) the world organization has ever come a process that was not followed for the to a realistic and realizable develop- formulation of the MDGs, which were among most of the poorest countries ment agenda. produced by a handful of senior UN (see chart on the right). Indeed, the Starting in 2012, states and secre- officials. 2015 final MDGs report showed that tariats have toiled to frame a new set of The path to consensus among repre- the proportion of people in dire pov- “sustainable development goals,” again sentatives of member states is to ensure erty worldwide will have been more intended to focus UN operations, but that all their respective interests are in- than halved, even ahead of the target this time until 2030. In 2013, a high- cluded, along with those of multiple year; all developing regions will have level panel chaired by three serving lobbying groups and advocates, includ- achieved gender parity in primary edu- heads of government proposed a new ing every UN development organiza- cation; the clean water access goal will set of 12 goals and 50 measurable indi- tion. A year-and-a-half later, the OWG have been reached along with impres- sive results in fighting malaria and tu- UNDP’S MILLENNIUM DEVELOPMENT GOALS, 1990 – 2015 berculosis. In other areas, global mea- MADE MET surements indicate some substantial MILLENNIUM DEVELOPMENT GOAL PROGRESS GOALS shortfalls. Primary school enrolment is still not universal; chronic child malnu- 1. The proportion of extremely poor people trition remains far too high; child and decreased by more than half since 1990. maternal mortality rates have fallen, 2. Five out of ten children in developing countries but inadequately; and sanitation stan- are now in school. dards are short of their targets. While 3. There are generally as many girls as boys enrolled skeptics often indicate that the MDGs in primary school today. themselves deserve less credit for the plunge in poverty than growth in China 4. The global under-five mortality rate declined by and India, nonetheless more than 700 more than half. million people emerged from poverty. 5. The maternal mortality rate decreased by 45%. Meanwhile, the prospect of bad pub- 6. The HIV/AIDS, malaria and TB epidemics have Before you read, download the compan- been halted and still fewer people are infected ! ion Glossary that includes definitions each year. and a guide to acronyms and abbreviations 7. Five out of ten people have access to clean used in the article, as well as additional drinking water today. background material. Go to www.great decisions.org and select the topic in the 8. Develop a global partnership for development no clear deadline Resources section on the right-hand side of the page. SOURCE AND TEXT: UNITED NATIONS DEVELOPMENT PROGRAMME
64 UNITED NATIONS 6 arrived at a list of no fewer than 17 de- velopment goals (see Table 1) and 169 Table 1: The 17 Sustainable Development Goals explanatory paragraphs (with at least Goal 1 End poverty in all its forms everywhere. as many targets). The largest gathering ever of presidents and prime ministers Goal 2 End hunger, achieve food security and improved nutrition and at the UN summit of September 2015 promote sustainable agriculture. adopted “Transforming Our World by Goal 3 Ensure healthy lives and promote well-being for all at all ages. 2030: A New Agenda for Global Ac- Goal 4 Ensure inclusive and equitable quality education and promote tion.” Optimists called it “aspirational,” lifelong learning opportunities for all. whereas skeptics like Bjørn Lomborg Goal 5 Achieve gender equality and empower all women and girls. noted that “having 169 priorities is the Goal 6 Ensure availability and sustainable management of water and same as having none.” William Easterly sanitation for all. suggested a different “SDG” acronym: Goal 7 Ensure access to affordable, reliable, sustainable and modern “senseless, dreamy, garbled.” All too energy for all. often the problem with UN delibera- Goal 8 Promote sustained, inclusive and sustainable economic growth, tions is that process is more important full and productive employment and decent work for all. than product; getting to an agreed text is Goal 9 Build resilient infrastructure, promote inclusive and sustainable a sufficient criterion for success, how- industrialization and foster innovation. ever lacklustre the result. Goal 10 Reduce inequality within and among countries. The Economist aptly characterized an earlier version as “something for Goal 11 Make cities and human settlements inclusive, safe, resilient and everyone has produced too much for sustainable. anyone.” Indeed, the number of targets Goal 12 Ensure sustainable consumption and production patterns. is so numerous that no country will be Goal 13 Take urgent action to combat climate change and its impacts. able to adopt them all. Among the first Goal 14 Conserve and sustainably use the oceans, seas and marine seven goals, there is a restatement and resources for sustainable development. a further elaboration of most of the un- Goal 15 Protect, restore and promote sustainable use of terrestrial realized MDGs. And because “sustain- ecosystems, sustainably manage forests, combat desertifica- ability” implies environmental man- tion, and halt and reverse land degradation and halt biodiver- agement, the majority of the 17 goals sity loss. are wholly or partially concerned with Goal 16 Promote peaceful and inclusive societies for sustainable de- managing resources, energy or climate velopment, provide access to justice for all and build effective, change. accountable and inclusive institutions at all levels. An exception is Goal 16 that, in Goal 17 Strengthen the means of implementation and revitalize the acknowledgement of what is consid- global partnership for sustainable development. ered the main engine of development progress, deals with aspects of national governance that include building strong of development aspirations. In some Will all goals and targets be mea- and inclusive institutions, promulgating ways, the can has been kicked down the sured for every country? Or will a dif- the rule of law, respecting rights, and proverbial road as the actual contents ferent set of goals be tailored to each? reducing corruption and “all forms of of the agenda have been postponed un- Or a mixture? How will their detailed violence.” Another exception is the fi- til March 2016 when the Inter-Agency application be measured? While the nal Goal 17 that concerns the “means of and Expert Group—a sub-group of 28 SDGs refer to least developed, land- implementation,” which contains some of the 193 national statistics offices that locked and small island states, there is general statements acknowledging that compose the UN’s Statistical Com- no mention of those prone to conflict, the goals will necessitate substantial mission—is to quantify targets where which will face the greatest develop- new resources for their realization. A possible. Their indicators will, in ef- ment challenges. Readily available met- central problem, which is especially fect, define the meaning of the SDGs rics existed for virtually every country pertinent for Goal 16, is that the last two and how they are monitored. Choices for every MDG; how will new SDG umbrella goals are vague but shelter a are necessary because not all countries concepts, such as security or gover- large number of issues dear to the West can meet the (measurable) targets. And nance, be determined? and contested by many other countries. perhaps more importantly, their sheer Even once the shaping and honing The SDGs do not lack ambition, but number means that the earlier MDG has been done, better capacities for sta- if they are to have any practical impor- advantage of being able to name and tistical compilation will be required. tance, critical choices will have to be shame governments will largely have How will they be provided? And if the retrofitted onto this indigestible menu been removed. data can be trusted, who will monitor,
65 6 GREAT DECISIONS 2016
Speakers at the opening ceremony celebrate the adoption of the new Sustainable Development Goals during the Sixth Annual Social Good Summit on September 27, 2015, in New York. An initiative of the United Nations Foundation, Mashable, United Nations Development Program and the 92nd Street Y, the Social Good Summit explores how technology and new media can be leveraged to address global is- sues. (STUART RAMSON/AP IMAGES FOR UN FOUNDATION) and how? How can observers, as Nate Alliteratively, but not accurately, the the increase in all forms of international Silver’s best seller asked, distinguish outcome document of the July meet- finance” since the first FfD conference in “the signal from the noise”? ing was called the Addis Ababa Ac- 2002. The role of South-South coopera- Governments simply must be held tion Agenda (AAAA). In the age-old tion was also recognized. to account if this exercise is to be even relationship between cart and horse, it But for an “action” program, the modestly meaningful. Yet govern- might have been more logical to agree language is infused more with exhor- ments—as the main obstacles to de- what needed to be done prior to deter- tations than decisions. It reads in part velopment—are the sole drivers of the mining the resources and actions re- like an alternative post-2015 agenda. A review process. To ensure objectivity, quired for implementation. rare mention of the word “decide” oc- civil society organizations, internation- On a bright note, the Addis meeting curs in the establishment of a “technol- al nongovernmental organizations and did not—like virtually every UN devel- ogy facilitation mechanism” based on the UN itself should track the SDGs. opment meeting before it—get bogged an inter-agency task team of eight UN Indeed, the world body could well down in a sterile North-South debate entities. In typically convoluted UN jar- emulate its own practice in the human about aid, prompting the UK develop- gon, this mechanism is “for facilitating rights domain and institute “universal ment minister to declare that it was “a interaction, matchmaking and the estab- periodic reviews” of each country’s de- historic international deal that takes us lishment of networks between relevant velopment performance. beyond aid.” The conference ended on stakeholders and multi-stakeholder Apart from Goal 17 on means of time and was without fireworks or pas- partnerships.” implementation, the OWG did not go sion, which could also signify that the The AAAA is also more explicit in in depth on the resource implications stakes were low. In fact, the outcome doc- its treatment of illicit financial flows of the SDGs; but it is clear that huge ument outlines the requirement to blend and corruption, which bleed the African investments will be required to support domestic public and private finance be- continent of more resources than can be the implementation of the post-2015 fore the section on “international devel- offset by incoming aid. The document development agenda. Rather clumsily, opment cooperation.” The juxtaposition also calls for strengthening the work of the UN contrived to hold a conference is important because of aid’s diminish- the UN committee of experts on inter- on the financing of the agenda two ing role in relationship to other potential national cooperation in tax matters, a months before the agenda was agreed. international resources. The discussion sensitive issue for several major donor The Third International Conference on about Official Development Assistance countries. Financing for Development (FfD) was (ODA) stopped short of making progress There is also some language dealing held in Addis Ababa in mid-July 2015. conditional on more aid and “welcomed with international migration and human
66 UNITED NATIONS 6 trafficking. Signatories also “commit of national differentiation or differen- signed to finance the provision of global to ensuring the effective implementa- tial responsibilities. The AAAA moved public goods. The section on trade also tion of the United Nations Conven- toward a balance between external aid recognizes its contribution “to the pro- tion against Transnational Organized and domestic resource mobilization. motion of sustainable development.” Crime,” although actions will speak The AAAA was also a step in the If suitably adjusted to include real- louder than these words. right direction, moving the international istic targets, if a proper monitoring sys- A challenge for the SDGs agenda conversation away from financing for tem is put in place and if adequate re- is the inherent tension between its uni- purely national goals such as educa- sources are available—obviously, some versal nature—what is called “a shared tion and clean water and toward global very big “if’s”—this complex agenda is global responsibility”—and the prin- public goods such as halting climate supposed to capture what UN publicity ciple of “common but differentiated re- change and pandemics. The document trumpets as “the world we want.” This sponsibility,” or the idea from environ- recognizes many new sources of devel- agenda nevertheless constitutes a gigan- mental law that wealthier, industrialized opment finance, including the Global tic challenge to the UN development countries have a greater responsibility Fund to Fight AIDS, Tuberculosis and system on which successful implemen- because they have for some time con- Malaria, GAVI, the global Vaccine Al- tation will at least partially depend. But tributed much more to environmental liance, and the Green Climate Fund. what constitutes this system, and will deterioration. At stake is how to square These sources are mainly funded by the it be up to the job? In short, what is the that circle, or how to include the concept traditional Western donors and are de- UN we want and require? n How fit for post-2015 purpose is the UN? evelopment is usually described Although it comprises organiza- Organization will play a major role as one of the main pillars of the tions covering the gamut of develop- for commerce but is outside the UN. UN,D the others being international ment domains, the UN system cannot In infrastructure and finance, the World peace and security, human rights, and provide institutional solutions to all Bank Group and regional develop- humanitarian action. As distinct from the challenges encompassed by the ment banks as well as the new Asian the other pillars, the various organiza- SDGs. For example, the World Trade Infrastructure Investment Bank will be tions that make up the UN development system share long-term objectives. Al- UN DEVELOPMENT SYSTEM: a snapshot most every part of that system is also a SECURITY GENERAL member of the High-level Committee COUNCIL ASSEMBLY on Programmes and the UN Develop- ECONOMIC AND ment Group, which oversee operational SOCIAL COUNCIL EXECUTIVE REGIONAL activities at the field level. Therefore, BOARDS (7) COMMISSIONS (5) there is a “system” behind the UN’s de- UNITED NATIONS GOVERNING velopment pillar and aspirations. PROGRAMS AND SECRETARIAT COMMISSION BODIES (14) This system undertakes the “opera- FUNDS (9+1) SECRETARIATS WORLD tional activities” that account for about UN-DESA SPECIALIZED BANK 60% of total annual UN spending (some UNDP UNODC ECA AGENCIES (7+7) $17 billion in 2013), employing 80,000 UNICEF ECE WFP ECLAC ILO ICAO people, a majority of the organization’s UNFPA ESCAP FAO IMO full-time staff. It includes more than 30 UNCTAD ESCWA UNESCO ITU organizations (variously called funds, ITC WHO UPU programs, offices and agencies). There UNEP UNIDO WMO are also an equivalent number of sup- HABITAT IFAD WIPO UNWTO IAEA portive functional commissions and UNAIDS research and training organizations, UNOPS UN training and UN functional which are not included in the total. For research organizations commissions example, the UN University alone has REGIONAL AND COUNTRY FIELD SYSTEM (1000+ OFFICES) 16 specialized centers that do not ap- Many regional locations – between 5 and 20 separate UN offices per country pear in the UN’s main alphabet soup. SOURCE: UNITED NATIONS
67 6 GREAT DECISIONS 2016 partners, but they are part of the UN with alternative sources of funds and Development System (UNDS) world- system in name only or not at all. In expertise—ranging from foundations wide (and over 1,400 for the UN as a health, a major role can be anticipated like Gates to nongovernmental organi- whole, including peace operations). The for the Global Fund and the GAVI Vac- zations of rival size, to foreign direct numbers, moreover, are growing not cine Alliance. investment that is five times larger shrinking. Criticism is getting louder In addition to the role of such non- than ODA, and to remittances that are as impatience grows with proliferation, UN bodies, the landscape is changing at least three times the size. And, of decentralization, rivalry, turf battles and for the UN in other ways. Competition course, trade is booming, with many of redundancy. comes from other global forums like the the poorest countries in Africa enjoy- Capacity is another variable. What G20 and the World Economic Forum. ing substantial royalties from oil and exactly can the system do? How robust Emerging powers like Brazil, China and mineral production. is the expertise within it? What are its India provide alternative forms of as- Co-optation is the way to describe comparative advantages, and how can sistance to developing countries. More the increasing extent to which govern- they be maximized? Merely replicating appropriate and specialized sources are ment and multilateral agency contribu- the activities from the past is not viable, available for the bread-and-butter tech- tions to the UN development system are and limping along does not suffice, al- nical assistance long provided by the tied to donor conditions and earmarked though it seems to be the default option. UN system. Development inputs go far for specific countries, priorities and Complacency characterizes the at- beyond aid, which is being supplanted groups rather than determined by the titude of too many members of the international civil service who do not seem to recognize that there is a crisis, and that a transformative change must be made to prevent the UNDS from be- coming a marginalized anachronism. Another “C” is for “consolidation” or “centralization.” The UN’s structure would have puzzled even Rube Gold- berg, the celebrated U.S. cartoonist whose elaborate contraptions a jour- nalist described as a “symbol of man’s capacity for exerting maximum effort to achieve minimal results.” The struc- ture and procedures, along with donor incentives, explain why individual UN organizations focus on their own sub- stantive areas and eschew a coordinat- ed UN path; they prefer to go it alone. Backed by separate budgets, governing boards, and organizational cultures as by foreign direct investment, private UN itself. Earmarking by donors threat- well as independent executive heads, capital, worker remittances, export re- ens to undermine the capacity of the UN an almost universal chorus sings the ceipts, taxes and mining royalties. to address effectively a universal de- atonal tune praising decentralization Besides being hemmed in by an in- velopment agenda represented by the and autonomy. The UN’s principal or- creasingly competitive environment, SDGs. Indeed, the single largest source gan charged with oversight, the Eco- the UN has its own inherent weakness- of funding for the operational UN is the nomic and Social Council, provides es, giving urgency to considerations European Commission and its agencies, one of the main concert halls for this about its purpose in the post-2015 era. for which UN organizations act as im- cacophony. Five kinds of weaknesses characterize plementing agencies. To be fair, there has been adaptation the current UN system: competition, Coherence, or actually lack thereof, by the UN over time. Indeed, founders coherence, co-optation, capacity and is a long-standing lament. Few would might well not recognize today what complacency. deny that the system is atomized. Apart they created in 1945, when such prob- Competition has squeezed the sys- from the number of different entities, lems as the environment and women’s tem out of the aid mainstream. The UN there is their physical dispersion. The rights were not on the agenda—prob- is now the source of less than 14% of headquarters of the main organiza- lems that have subsequently spawned a total ODA. The UN’s operations are tions are in 14 different countries (and variety of institutional adaptations and essentially financed by ODA, which is 15 cities). There are also more than changes. At the same time, our perspec- less and less important in comparison 1,000 representative offices of the UN tive reflects how empty the current glass
68 UNITED NATIONS 6 is after seven decades. Robert Jackson was one of the operational giants of multilateralism for the Allies in World War II and the UN afterwards. He began his 1969 Capacity Study’s evaluation of the UN development system by writing: “The machine as a whole has become unmanageable in the strictest sense of the word. As a result, it is becoming slower and more unwieldy like some prehistoric monster.” That sentence infuriated heads of UN organizations then, but the lumbering dinosaur is now older and certainly not better adapted to the climate of the 21st century. There have been serious debates but only half-hearted efforts at reform, in- cluding the 2006 “Delivering as One” report (DaO). But astonishingly, the A nurse gives a health record to the mother of a malnourished child waiting to be seen at a most serious scrutiny about the funda- clinic of the NGO Kuwait Patient Helping Fund in Abu Shouk camp for Internally Displaced mental role of the system took place Persons, North Darfur, Sudan. (ALBERT GONZÁLEZ FARRAN/UNAMID) in 1969; and we could do far worse than revisit the Jackson report’s rec- wide Coherence. The recommendations aging sign was the merger of four en- ommendations. While the importance from this panel, convened by former tities to form UN Women, the result of the world’s body in helping to con- Secretary-General Kofi Annan, are still of painstaking negotiation over four front a growing litany of global chal- pertinent but are only very slowly be- years—the first time in UN history lenges has never been greater, the UN ing implemented. Having more than that major institutional entities were is disjointed and demoralized. Former 1,000 country representatives is waste- closed down and consolidated. The UN Under Secretary-General Marga- ful, and while maintaining a universal panel also recommended a rapproche- ret Joan Anstee lamented that after 45 presence, the UN’s country operations ment of the UN with the World Bank, years, the Capacity Study remained should be scaled-back in a growing which appears to be taking place in- “the ‘Bible’ of UN reform because its number of emerging and middle-in- formally, through growing contacts precepts are lauded by everyone but come countries. The world body should between the Korean-born heads of put into effect by no one.” concentrate more on those specific the two institutions, hopefully lead- The UN needs to be fitter for purpose situations in which its operational role ing to joint programs in some troubled if it is to be a useful institution in the will remain indispensable, particularly states. post-2015 era. But unlike most public in conflict-prone countries. In fragile Most recommendations from 2006, organizations, there are no incentives environments, the UN should combine however, remain moribund. The pro- to pursue cost-effectiveness because its operations with its other main roles posal to vest the UN Environment Pro- member states are either the UN’s inter- of peacebuilding, including humanitar- gramme with “real authority as the envi- ested patrons or its patronized partners. ian relief, and the promotion of human ronmental policy pillar of the UN” was Such cozy relationships are impedi- rights and social justice. widely mooted at the Rio+20 conference ments, but they are also opportunities The DaO report recommended that in 2012, but it has barely advanced. The for reformers: impediments because the UN system deliver as a unit instead Commission for Sustainable Develop- any proposal that purports to reduce of as a menagerie at the country level, ment was re-vamped but falls short of the the UN’s footprint will meet opposition but it never questioned why more than authoritative Sustainable Development (from donor countries that are hosts of 20 different UN organizations still Board envisaged to oversee and drive the UN organizations, or developing coun- require separate offices in program DaO initiative. Two of the recommenda- tries with a large UN presence); but countries, and overlooked the fact tions that would have done more than opportunities as well because one or a that transaction costs increased rather any others to bring greater coherence to few influential member states can work than decreased. While not achieving the system have not materialized: the ap- to champion change. Fortunately, there the hopes for one leader, one program, pointment of a respected development are initiatives to pursue. one fund and one office in more than thinker to oversee the entire system, and The most recent overall reform blue- a handful of cases, UN development the establishment of single consolidated print consists of the 2006 DaO report organizations are collaborating more funds for the UN development system in of the High-level Panel on UN System- closely in some instances. An encour- each country.
69 6 GREAT DECISIONS 2016 to move the UN toward the kind of need to increase….[T]he call for reform transformation required. is likely to grow steadily” and “the ques- The requisite overhaul is not only tion remains when, not if.” The authors’ urgent but also unprecedented. Radical own research and interpretation of the reform has been elusive and change in- last seven decades of development ef- cremental. As former UN Deputy Secre- forts show more and more moving parts tary-General Mark Malloch-Brown puts but with less and less synergy, as well as it: “a long period of tinkering with the higher transaction costs related to coor- UN machinery may actually allow the dination for both host governments and growing gap between performance and for UN staff, but with too few results. n Future reform he UN’s operations, particular- came up with “human development,” ly in developing and transition which was a value-driven riposte to countries,T are its most visible feature, the Washington Consensus that em- and most conversations about reform phasized liberal economic reform The United Nations Stabilization Mission concern the operational delivery ca- without considering the human costs. in Haiti’s (minustah) Civil Affairs and the pabilities of the UN development sys- Defined over the course of many glob- Brazilian UN Peacekeepers held a Civil- tem through its technical cooperation al, regional and country reports, hu- ian/Military Community event at a school activities. But such assistance has di- man development is a paradigm that in the volatile neighborhood of Cité Soleil. (LOGAN ABASSI/MINUSTAH/UN PHOTO) verged too far from the other primary places individual well-being, not only function of the UN system—its con- economic growth, as the central tar- There have been fledgling efforts tribution to the ways that states, orga- get of human progress. Inherent in the to promote coherence under Ban nizations and individuals think about concept are the rights, capacities and Ki-moon, the current UN Secretary- problems and formulate meaningful opportunities of the individual and the General. Some business practices are policies. The UN’s development goals creation of an enabling environment. being harmonized. More system-wide are the products of this ideational role, Unfortunately, human development evaluations are envisaged. A cautious although in the case of the SDGs, the never caught on across the entire UN plan has been proposed to align seven UN Secretariat’s intellectual contri- development system—not because of research and training entities. That bution has been minimal. This ab- any inconsistency with UN values, but such seemingly obvious steps are still sence of original UN thinking belies rather because the atomized system merely under consideration and viewed the findings of a decade of research could never find and occupy common as stretches is a reflection of the magni- from the United Nations Intellectual ground. tude of the task. History Project, which demonstrated So, human development was “copy- Some new initiatives could have the world organization’s exceptional righted” as a UNDP idea. The rest of the a beneficial impact. In an attempt to role in the generation of ideas, norms, system was still defining development bring the different parts of the sys- principles, data and standards. In in narrower dimensions by organiza- tem together and more partners into many ways, these efforts have been tional sectors and mandates: econom- the UN’s work, the secretary-general a singular contribution, one that can ic, social and environmental. These has launched several programs: Ev- thrive even amid the system’s institu- are the three facets of “sustainable ery Woman, Every Child; Sustain- tional silos. development” that anchor the SDGs. able Energy for All; the Global Edu- However it is unlikely that sustainable cation First Initiative; Zero Hunger Human development development will “broaden the frame Challenge; the Scaling-Up Nutrition However, translating ideas into prac- of reference and community in which Movement; and the Call to Action tice is where the UN falters. There development issues are understood, de- on Sanitation. These initiatives dem- are two parts to the problem. The cisions are taken, and implementation onstrate the continued proclivity for first consists of attempting to define is executed and evaluated,” as outlined accretion—adding but never retiring a unifying development paradigm by by Ban Ki-moon. In fact, it is likely redundant relics. However, if they bringing together the many solid ideas to permit an array of isolated efforts encourage existing UN organizations that have emerged from the system. to be displayed side-by-side, with dif- to take charge and extend partner- In the 1990s, for instance, the UN ferent UN organizations championing ships, perhaps they will have helped Development Programme (UNDP) favored angles. A coherent paradigm
70 UNITED NATIONS 6 would require the kind of collaboration but it is also involved in many other staff can count on the support of the across agencies and perspectives that industry-related activities that have no UN’s leadership in taking a moral stand cannot easily come from the UN devel- normative footings but are attractive on rights issues. opment system as currently configured. to donors. The UN development sys- At the global level, the importance The second part of the problem tem could be more effective if it were of having a system is nowhere more in arises in putting the UN’s ideas into to expend more resources on issues in evidence than in the UN’s attempts to practice—“operationalizing” develop- which it has been instrumental in set- face up to major, longer-term develop- ment, however defined, by every part ting standards, and less in areas where ment challenges. If the UN is to have of the system. UN organizations are a there are growing numbers of alterna- an impact in improving the planet’s source of original research and ideas, tive sources of assistance. environmental management, climate on which global norms and standards Getting the UN system and its staff change, food security, migration and are based. They embody the universal to think and act more normatively will many other issues, it requires marshal- values for which the UN is rightly cher- necessitate changes in organizational ing “coalitions of the willing” of dif- ished. In areas such as human rights, culture. In 2013, the secretary-general ferent organizations within its own de- gender equality, health, employment revived a proposal originally put for- velopment pillar (technical, normative and environmental standards, the UN ward by his predecessor that he called and operational). is the critical source of value-based “Human Rights Up Front.” The pur- 2016 marks the beginning of a re- global norms that aspire to universal pose of the new initiative has been de- newed development agenda and coin- application. But the expansion in the scribed as an attempt to ensure that the cides with the last year of current Sec- numbers and scope of these standards UN system “takes early and effective retary-General Ban Ki-moon’s tenure. is not matched by the efforts of the UN action, as mandated by the Charter and One of his legacies seemingly will have development system to help ensure UN resolutions, to prevent or respond to been to preside over the continuing de- compliance. large-scale violations of human rights or cline of the UN’s development system. The MDGs’ agenda at least focused international humanitarian law. It seeks Inertia will not be a viable organizational the system on the goals that it had to achieve this by realizing a cultural strategy for the next secretary-general. helped to establish. But too much of change within the UN system, so that The discouraged reader may very the UN’s technical cooperation—the human rights and the protection of ci- well be tempted to ask, is the sys- backbone of its operations—is spent vilians are seen as a system-wide core tem actually capable of fundamental on free-standing project initiatives, responsibility.” Officials are encouraged change? We have been asking that many only tenuously connected to to embrace moral courage and prevent question in a series of public opinion the system’s own norms. The World serious and large-scale human rights surveys over the last four years among Health Organization cannot itself violations. It remains to be seen wheth- people worldwide who support and are deliver better health to the world, in- er cultural change results, and whether usually familiar with the UN’s work. cluding halting the spread of Ebola, but it can actively promote its own healthcare norms and raise funds for its own niche activities. The Inter- national Labor Organization mobi- lizes resources to help build labor- intensive rural roads and also sets up cooperatives, but its principal vocation is ensuring greater compliance with the conditions and safety standards it established for the world’s workforce. The Office for Drugs and Crime has sought for many years to stamp out narcotics cultivation, without success; much more important are its efforts to promote and monitor compliance with the UN Convention against Cor- ruption (of which it is the custodian) but here too headway is hard to verify. The UN Industrial Development Or- ganization has played a role in helping United Nations Secretary-General Ban Ki-moon rides a bike made of bamboo during a industrial enterprises to phase out the meeting with the Ghana Bamboo Bike Initiative at the UN Climate Conference in Warsaw, use of ozone-destroying substances, Poland, November 20, 2013. (ALIK KEPLICZ/AP PHOTO)
71 6 GREAT DECISIONS 2016 Samples in the U.S. would undoubt- citizens (two thirds from the global ington-based financial institutions. edly be more indifferent and probably South) have also identified possible The views in the global South about more hostile toward the very notion directions for UN reform, with more the urgency of UN reform are often of international cooperation and the optimists than pessimists. more strident than those of the North, role for the UN system. However, it Rankings of individual organiza- although the support for a UN system is worth noting that a large majority tions have shown very wide ranges with less state control and more norm- of informed respondents worldwide of perception of both relevance and making and operational autonomy are in the latest expert survey of Decem- effectiveness. An informed global ex- feeble everywhere. ber 2014 were “optimists” (77%) pert public has called for the merger of Whether the UN’s development glass who maintained that the system could many overlapping UN organizations. is half-full or half-empty, clearly there is change, while only a quarter remained For the system as a whole, the most ur- very substantial room for improvement pessimistic. The proportion of pes- gent and feasible changes are to mod- to get the United Nations that we want simists was smaller among emerg- ernize business practices, which are for the world that we want, or even for ing powers (15%) and larger among too complex, expand partnerships with the world that we have. Does an oppor- developed countries (31%). Over other development organizations and tunity arise with the forthcoming elec- the years, voices from some 10,000 clarify the relationship with the Wash- tion of the next secretary-general? n Next SG must be a reformer or only the second time—the first United Kingdom, China, France and general who is “highly skilled, com- was in 1996—the electoral cam- Russia. The main “tests” will be geo- petent, persuasive and visionary.” If paignsF for the American president and graphic origin, which this time favors seven billion constituents along with the United Nations secretary-general Eastern Europe, and perhaps gender. 188 other member states cannot vote, are running in parallel. Both promise “Why not a female secretary-general could their views at least be better to be long and protracted. Each has a for the first time?” rhetorically asks represented? Could some modest ac- growing slate of presumptive candi- Equality Now, a network of women’s countability not be introduced into the dates pounding flesh and employing rights groups. usual great power manipulation? How lobbyists. After seven decades of elections for about a basic job description? But the next year will witness very individuals based as much on accident Only Pollyanna would hope for a different selection processes. U.S. as on merit, the decibel level is grow- comprehensive vetting in 2016, but presidential aspirants will be watched, ing for a shakeup in the traditional UN calls for change may have more trac- tested, and paraded in front of respect- process of leadership selection. The tion than in the past. In early Sep- ful and hostile audiences in a vetting 1 for 7 Billion campaign emerged in tember 2015, the General Assembly that is far more prolonged than the 2015 and uses social media and other passed resolution 69/321 that asked the electoral campaign for most heads of means to call for a more transparent presidents of the assembly and of the state. Americans undoubtedly will be process, including a shortlist for all Security Council to send a joint letter fatigued by and fed-up with the seem- member states to evaluate. Impor- to states describing the entire process ingly never-ending process, but the tantly, it has called for geography to and to “conduct informal dialogues or citizens of the planet are at the opposite be secondary and for the more inclu- meetings” with declared candidates. It end of the spectrum: they have virtu- sive process to identify a secretary- also called for candidates’ names and ally no say in selecting the UN’s top CVs to be circulated. official. Box 2: UN secretaries-general An absolutely essential element Indeed, the UN Charter says 1945–2016 of any candidate’s platform should precious little about how the sec- SECRETARY-GENERAL NATIONALITY DATES be a candidate’s “vision” for the retary-general is to be selected. If OF SERVICE future shape of a reformed UN sys- past is prelude, however, the suc- Trygve Halvdan Lie Norway 2/1946–9/1952 tem and how to make the most of its cessful candidate for the planet’s Dag Hammarskjöld Sweden 4/1953–9/1961 80,000 international civil servants top job will, as spelled out in Char- U Thant Burma 9/1961–12/1971 (and some 125,000 military and ci- ter Article 97, be rubber-stamped Kurt Waldheim Austria 1/1972–12/1981 vilian peacekeepers). While geopo- by the General Assembly after be- Javier Pérez de Cuéllar Peru 1/1982–12/1991 litical change is beyond the writ of ing selected by an extraordinarily Boutros Boutros-Ghali Egypt 1/1992–12/1996 the secretary-general, shaking up the compact electoral college of five: Kofi Annan Ghana 1/1997–12/2006 system and its staff members is not. the veto-wielding members of the Resigning in utter frustration, Ban Ki-moon S. Korea 1/2007–12/2016 Security Council—the U.S., the the first incumbent, Trygve Lie of
72 UNITED NATIONS 6 Norway, described his seven years at the helm as “the most impossible job in the world.” In addition to being bat- tered by politics, he and his succes- sors have unsuccessfully tried to make sense of a fragmented and decentral- ized system engaged in virtually every sphere of human activity: peace and security operations; humanitarian as- sistance; promotion of human rights and justice; establishment of norms and conventions; and the provision of technical assistance for peace-building and development. The job is all the more complex because within the system, the “boss” is only primus inter pares. The UN’s specialized agencies are indepen- dently funded and managed, answer- President Barack Obama (center) and world leaders pose for a photograph before a UN ing only to their own governors and Peacekeeping Summit, September 28, 2015, at UN headquarters. (ANDREW HARNIK/AP donors. Even the special funds and PHOTO) programs of the UN proper are largely autonomous. Thus, it is critical to identify and Policy implications in DC The last two decades have wit- elect a secretary-general who under- While the UN should, it undoubtedly nessed a few promising innovations: stands the flaws in the structure and will not figure in the presidential de- the International Criminal Court; the staffing of the component parts of the bates or American voting decisions for Global Compact; the Peacebuilding dysfunctional UN family and has the the November 8, 2016, presidential Commission; and the Human Rights knowledge, determination and charis- election. Nonetheless, a crucial input Council. However, these innovations ma to confront and hopefully correct will come from the presidential transi- have added new moving parts. UN at least some of them. tion team about the UN’s next leader, member states and secretariats nor- Indeed, the chances for significant and what he or she should do with the mally respond to emerging problems institutional change are normally en- atomized UN system. by creating new mechanisms, often hanced during the “honeymoon,” the In spite of the obvious shortcom- putting existing UN organizations in first months of a secretary-general’s ings resulting from the SDGs kitchen- unworkable configurations but virtu- term. Both Boutros Boutros-Ghali sink, these goals nonetheless provide ally never getting rid of old institutions. and Kofi Annan instituted their most a framework of an ambitious develop- More and more organizations are at the sweeping staffing and management ment agenda for 2016–30. This frame- table but without a common menu. changes in 1992, 1997 and 2002. Let’s work contains the vocabulary for the As indicated earlier, the painful insist on similar initiatives from 2016’s next administration to exert leadership process of formulating new SDGs successful candidate. in pushing for sensible priorities and has been a predictable, if lamen- The 1 for 7 Billion campaign has sequencing for concessional finance table, reflection of the cumbersome also recommended a single term of and investment by the U.S. and by the system at work. The UN’s progres- six or seven years for the next secre- Washington-based international finan- sive marginalization is one reason tary-general (instead of a renewable cial institutions. not to be complacent about their one of five years), a proposal that The same kind of supportive multilat- implementation. has been raised repeatedly over the eral rhetoric and initiatives that character- A second reason is the evidence years but without success. Doing so ized the early Obama and Bush admin- from past attempts at reform that a would require overcoming tradition istrations could well have an impact in strong leader committed to change, and regional claims for parity but Washington. Let’s hope that the muddled and with the vision and communica- not a Charter revision. And it could process of formulating the SDGs will not tion skills to match, can make a dif- eliminate the caution that customarily be implemented by an ineffectual new ference. Key reform initiatives could accompanies concerns for re-election UN secretary-general. The selection of and should be on the radar screen of and jolt the eventual nominee with a that person in late 2016 will provide a the next secretary-general. The ques- greater sense of urgency to strength- crucial opportunity for the next U.S. ad- tion is not what and whether, but when en—and actually transform—the ministration to weigh in and help save the and how. world organization. UN system from itself. n
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discussion questions 4. Do you think that there is too much power vested in the Security Council veto? How would you change this system without en- 1. Should there be more incentives provided by the UN to countries croaching on any of the permanent member’s interests? that are able to meet certain Sustainable Development Goals? 5. Is there a global issue left unaddressed by the SDGs? Do you 2. If nominated to be the next Secretary-General, what reforms share the authors’ opinion that the SDGs are trying to take on too would you push? In addition, what initiatives would you undertake much at once? in order to make the SDGs more successful? 6. Which of the “five weaknesses” of the UN mentioned by the 3. Of the 17 Sustainable Development Goals, which is the one that authors has the most detrimental effect on the organization? Which seems the most likely to be achieved? What about the least? Why? one is the easiest to solve and how should we go about it?
Don’t forget: Ballots start on page 99!
History Project Series examines the UN’s exceptional role in the suggested readings generation of ideas, norms, principles, data and standards.
Murphy, Craig N., The UN Development Programme: A Better Browne, Stephen, The United Nations Development Programme Way? New York, Cambridge University Press, 2006. 392 pp. This and System. New York, Routledge, 2011. 192 pp. Browne offers a authoritative history of UNDP argues for the enduring relevance of brief overview of the system of organizations that delivers technical the network’s founding principles. assistance in developing countries. United Nations, Delivering as One. New York, United Nations, Browne, Stephen and Weiss, Thomas G. , eds., Post-2015 UN De- 2006. Available free online at:
Chesterman, Simon, ed., Secretary of General? The UN Secre- Weinlich, Silk, Reforming Development Cooperation at the tary-General in World Politics. Cambridge: Cambridge Univer- United Nations: An Analysis of Policy Positions and Actions sity Press, 2007. 280 pp. Gordenker, Leon. The UN Secretary- of Key States on Reform Options. Bonn: German Development General and Secretariat. London: Routledge, 2010. 126 pp. These Institute, 2011. 152 pp. Weinlich puts forward key issues from the books provide insights into the leadership and administration of the point of view of key actors about the reform of the development world organization. system.
Jolly, Richard, Emmerij, Louis and Weiss, Thomas G., UN Ideas Weiss, Thomas G., What’s Wrong with the United Nations and That Changed the World. Bloomington: Indiana University Press, How to Fix It. Cambridge: Polity Press, 2016. This book contains a 2009. 339 pp. This final volume in the United Nations Intellectual concise list of the UN’s ailments and suggests possible prescriptions.
To access web links to these readings, as well as links to additional, shorter readings and suggested web sites, GO TO www.greatdecisions.org and click on the topic under Resources, on the right-hand side of the page
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