UNESCO. Executive Board; 186th; Report by the Director ...unesdoc.unesco.org/images/0019/001921/192101e.pdf · the human resources management strategy for ... • HRM bureau reform

186 EX/25 Executive Board

Item 25 of the provisional agenda

REPORT BY THE DIRECTOR-GENERAL ON THE HUMAN RESOURCES MANAGEMENT STRATEGY

SUMMARY

In accordance with 35 C/Resolution 82 of the General Conference and 185 EX/Decision 6 (IX) of the Executive Board, the Director-General presents the human resources management strategy for 2011-2016.

This document has financial and administrative implications (see paragraph 20).

Action expected of the Executive Board: decision proposed in paragraph 20.

PARIS, 18 April 2011 Original: English

Hundred and eighty-sixth session

186 EX/25

Introduction

1. This document introduces the human resources management strategy for 2011-2016 (hereafter referred as the HR strategy), as requested by the General Conference in 35 C/Resolution 82-I and 185 EX/Decision 6, Part IX.

2. The full text of the HR strategy is in Annex I, complemented by an Action Plan in Annex II.

3. In preparation of the strategy, consultations were held with Senior Management, representatives of Member States and Staff Associations. In addition, staff views were collected through a Global Staff Survey in which 1,200 staff participated (the detailed results of the staff survey are available on UNESCO intranet).

4. The objective of the HR strategy is to support the implementation of UNESCO’s Medium-Term strategies (2008-2013 and 2014-2019). The strategy takes into consideration the reform of the field network, the recommendations of the Independent External Evaluation (IEE) and those of the External Auditor, as well as IOS evaluations undertaken in the last years. It also envisions, as far as possible, harmonization with United Nations common system HR policies and practices. The latter is particularly important for “Delivering as One”.

5. The HR strategy recognizes that the staff of the Organization is its greatest asset. Skilled, competent and motivated staff are essential for UNESCO to achieve its mission. The strategy highlights the four core values to be displayed by all UNESCO staff: Commitment to UNESCO’s mission, Professionalism, Respect for Diversity and Integrity.

6. The vision statement set out in the current Medium-Term Strategy (34 C/4) continues to have full relevance, and is the overarching umbrella for the HR strategy:

“The greatest asset of UNESCO is a motivated, dedicated staff of the highest competence and integrity, representing equitable geographical distribution and gender balance, empowered to achieve the Organization’s mission and strategic objectives, through a commitment to managing for results...”

7. The HR strategy describes the strategic vision for 2011-2016 and as it overlaps over two C/4 periods, it should be viewed as a rolling strategy, which can be adjusted in support of the Organization’s strategic priorities, if required.

The three dimensions of the HR Strategy

8. The strategy is structured around three complementary axes: talent management, capacity-building and enabling environment. It emphasizes the concepts of striving for results, transparency, accountability, cost-effectiveness and harmonization of HR practices.

9. Talent management is about attracting and retaining talented people committed to the values of the Organization. It requires that staff profiles and professional skills/competencies be identified in advance and that staffing strategies to address these needs be developed and implemented, thereby paving the way for effective succession planning mechanisms to avoid staffing gaps and ensure programme delivery.

10. Staff capacity is about developing staff capabilities to be fully effective and efficient and to strive for results in their domain of competence. This includes professional development and skills updates to ensure that staff remain professionally competitive. Staff capacity development requires an innovative, results-oriented, cost-effective learning strategy with enhanced focus on management training. It should also ensure that institutional knowledge is transferred effectively.

11. Creating a positive and enabling work environment is about establishing and maintaining the necessary internal conditions that support staff commitment and motivation; a work

186 EX/25 – page 2

environment that is safe and healthy, inclusive, respectful, free of harassment and discrimination, where United Nations core values are abided by, and where there is a constructive dialogue with the Staff Associations and with the staff. It is important in such environments to ensure that mechanisms for the recognition of staff and team performance are in place.

12. The critical areas of focus of the HR strategy are:

Effective recruitment and selection is one of the keys to the future success of UNESCO. The Organization will be more proactive, efficient and effective in attracting best qualified candidates. The recruitment and selection cycle should be accelerated further and progressively streamlined.

Gender balance within the workforce is crucial in achieving parity at all levels. Progress has been made and the Gender Action Plan needs to be sustained, in particular at Director level and above.

Geographical representation is also important to reinforce the diversity and multiculturalism of the Organization’s workforce. UNESCO has one of the highest levels of representation among specialized Agencies. Over the next six years UNESCO will continue to work hard to maintain this progress.

Staff mobility is key to efficiency and can carry a powerful motivational factor. Working across disciplines, Sectors, Bureaux, and breaking the traditional silo approach, not only contributes to staff development but also foster an “esprit de corps” and support a culture of change. UNESCO will aim to embed staff mobility as a modus operandi in the Organization as it ensures that experienced staff resources available in house are transferred to where they are needed, when they are needed.

Staff development: UNESCO will put in place programmes to ensure that the quality of its management continues to improve, while ensuring that the initiatives are cost effective by measuring the results obtained. The Learning and Development Strategy will be realigned towards the development of key generic skills and managerial expertise.

Effective Management is central to the successful achievement of UNESCO’s mission. Establishing a culture of accountable and effective management is the primary key to unlocking the potential inherent in UNESCO staff and providing an enabling environment for the Organization to succeed. UNESCO will work to improve the capability of its management cadre.

Flexibility is a crucial test of any organisation’s ability to respond to its environment and the challenge of change. Mobility is part of that ability to move when the need appears, but so too are a range of contractual options to be utilized to meet these programme needs. UNESCO will aim to increase its contractual options and streamline its procedures.

Implementation (ref. to Annex II)

13. The Action Plan sets out measures to implement the HR strategy from 2011 to 2016, including the following:

• advance planning for critical key functions;

• rapid recruitment;

• sustained implementation of gender and geographical balance Action Plans;

• support partnership mechanisms in key areas;

• mobility (functional, geographical and inter-agency);

• managerial & partnering skills will be given priority focus;

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• knowledge sharing and transfer;

• new Learning Strategy, with a shift from training towards staff development;

• constructive dialogue with the Staff Associations;

• effective merit and recognition mechanisms;

• 180-degree performance feedback for supervisors;

• HRM bureau reform so as to redirect available resources to priority areas.

Priority Actions for 2011:

Filling vacant posts

14. The objective is to reduce the number of vacancies and address the most critical staffing gaps. There will always be a residual number of vacancies (i.e. retirements, internal transfers, separations). On the longer term, the objective is to align the vacancy rate to the lapse factor. Staffing plans will have to be refined /aligned with the outcome of the Field Network Reform.

Accelerate Internal Mobility

15. There is an urgency to create the dynamics of internal mobility, including at Headquarters. HRM will therefore work with ADGs/Directors of Bureaux to identify opportunities for staff movements between Sectors, Field and Headquarters.

Increase the delegated Learning and Development funds

16. Currently 60% of the Learning and Development budget is allocated by the Learning and Development Commission to support corporate learning programmes. The remainder 40% is delegated to Sectors to address Sector-specific needs. HRM supports a revision of this distribution so that a larger portion of the Learning and Development Budget be henceforth delegated to ADGs to address training specific needs in their areas of competence and that they be accountable for the results attained.

Develop an accelerated and targeted departure programme (“Buy-Out”)

17. New skills and profiles may be needed as a result of change in programme priorities and gap analysis. To further support staff renewal, a buy out programme should be developed and implemented. Based on past experiences, and that of United Nations agencies and IFIs, a targeted approach is preferred which is mutually beneficial for the Organization and the staff concerned.

Reformed HRM

18. HRM will review its present staffing structure to ensure that priority areas get sufficient capacity, that tools are reviewed and upgraded to ensure a leaner structure with an emphasis on service delivery, communication and consistent application of rules, regulation, policies and practices.

Conclusion

19. The HR Strategy aims at ensuring that the Organization has a capable, skilled and motivated workforce. Its objective is to enable effective programme delivery, in response to the needs of Member States. As a rolling instrument, the HR Strategy is adaptable to future challenges and requirements. It focuses on fundamental, yet critical aspects of Human Resource management, such as recruitment, staff development, mobility, flexibility, diversity and effective management.

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Progress in these areas should contribute to enhance the overall performance of the Organization and change towards an innovative, inclusive, reflexive, outward-looking and collaborative culture.1

Draft decision

20. In the light of the foregoing, the Executive Board may wish to consider the following draft decision:

The Executive Board,

1. Recalling 35 C/Resolution 82 and 185 EX/Decision 6 (IX),

2. Having examined document 186 EX/25,

3. Endorses the human resources management strategy and invites the Director-General to implement it, taking into account the Organization’s strategy and programmes within the limits of future budgets;

4. Requests the Director-General to submit the first progress review of the human resources management strategy to it at its 189th session and bi-annually thereafter.

1 See paragraph 39, 185 EX/18, Report of the Independent External Evaluation of UNESCO.

186 EX/25 Annex I

ANNEX I

UNESCO HUMAN RESOURCES MANAGEMENT STRATEGY FOR 2011-2016

A. Introduction

1. UNESCO’s greatest asset is its people. For UNESCO to achieve its mission, set out by Member States, it requires expertise, skills and motivation of the people who work for it. Staff must be recruited, supported in development, deployed, and managed in the most cost-effective manner possible, so as to contribute to the building of a culture of peace, the eradication of poverty, sustainable development and intercultural dialogue through Education, the Sciences, Culture, Communication and Information.

2. The human resources management strategy for 2011-20161 was developed further to consultations with senior management, representatives of Member States and Staff Associations. Staff were consulted through a Global Staff Survey conducted in December 2010, in which 1,200 staff participated2.

3. The HR strategy enables the implementation of the Organization’s global strategy and should contribute to the change of the institutional culture, which aims to be.3

Innovative - rewarding risk taking and building on commitment at common vision

Inclusive – engaging strategically with Member States and other partners

Reflexive – systematically learning form its own experience and through piloting change

Outward- looking – positioning itself as part of a wider global system

Collaborative – prioritizing collective rather than partisan interests and working across boundaries.

4. The HR strategy is subject to a number of internal and external drivers. In the current global environment, there is a critical demand for efficiency and results of the international organizations. United Nations reform is a driving force in this regard, as is internal reform. UNESCO HR strategy is seeking to continue its support of UNESCO Programme priorities while reinforcing the Organization’s field presence and harmonizing business and HR practices with sister Agencies, particularly at field level in support of “Delivering as One”.

B. Shared Values, as a foundation of the HR strategy

5. Working for UNESCO means being actively engaged in implementing its mission, its goals and objectives. The 2010 Global Staff Survey showed that we are committed towards the Organization’s mandate and have a strong belief in its mission. We work for a common cause in various roles within UNESCO’s community, sharing the same set of values representing “the way we, UNESCO staff, work” which are:

1 See 35 C/Resolution 82-I and 185 EX/Decision 6, Part IX. 2 The results of the 2010 Global Staff Survey are available on intranet. 3 See 185 EX/18, Report of the Independent External Evaluation of UNESCO, paragraph 39.

Vision: “The greatest asset of UNESCO is a motivated, dedicated staff of the highest competence and integrity, representing equitable geographical distribution and gender balance, empowered to achieve the Organization’s mission and strategic objectives, through a commitment to managing for results.”

186 EX/25 Annex I – page 2

6. Human resource management is not only the responsibility of the Bureau of Human Resources Management but also of all line managers. It covers the effective management of all UNESCO’s human resources, on all contract types, at Headquarters and in the Field.

C. The three dimensions of the HR strategy

7. The HR Strategy focuses on three priorities: talent management, staff capacity and enabling environment.


D. Talent management

8. Talent management is about attracting and retaining talented people committed to the values of the Organization. It requires that profiles and skills requirements are identified in advance (workforce planning) and that staffing strategies to address these needs are developed and implemented, thereby paving the way for an effective succession planning, ensuring programme continuity and avoiding staffing gaps.

9. The current staff demographic situation holds important potential for shifting posts and resources to priority areas, as well as to the field to enhance the Organization’s capacity at the country level. It can be seen as an opportunity for staff rejuvenation, bringing in new blood and new thinking and for shaping a new staff profile, aligned with the strategic priorities of the Organization. But it also represents a risk for the Organization in terms of future availability of competent leaders, technical expertise and institutional memory, given the anticipated retirement rate of experienced staff in the coming biennium.

Human resources planning

10. Many staff will retire over the next six years, including a substantial number of staff at managerial level, with 61% of staff at Director level and 46% of the P-5 staff retiring by 2016. This retirement pattern represents a significant challenge and risk to UNESCO in terms of the potential loss of institutional memory but it also provides opportunities for re-shaping the Organizational structure.

11. To avoid staffing gaps and ensure continuity in operations, advance planning will be implemented for those occupational groups where the turnover is expected to be significant, over the next 4-6 years, as well as for critical, key functions.

Talent pools

12. Talent pools will be set up to ensure the availability of a sufficient number of potential candidates and to allow for a smooth transition.

Field capability

13. Retirements will also provide an opportunity to redesign jobs and shift positions to priority areas, including the field, which will go through a significant review, in terms of structure and staffing over the next four years. To reinforce the field capability, consideration will be given to redeploy Headquarters posts by transferring one out of two vacant posts due to staff retiring until 2016.


Skills set

14. Key skills needed of UNESCO staff such as innovation, partnering, communication, ability to work on projects and in teams will be reinforced; the ability to interact professionally with UNESCO partners and to successfully manage UNESCO networks will be strongly emphasized. Focus on management potential will also be a priority, given the high level of turnover at managerial level, and the anticipated need for strong management skills.

Partnerships

15. The new loans and secondment framework will be used strategically, to fill gaps through targeted extrabudgetary loans and secondments in key areas where needs exist, such as in post-conflict and post-disaster (PCPD) situations. Partnerships with governments, intergovernmental institutions, universities and the private sector will be actively supported.

Recruitment and Selection

16. The Organization will be more proactive, efficient and effective in attracting quality and suitable candidates, ensuring that talented people from diverse geographical backgrounds, including talented women, are attracted for recruitment to UNESCO, and about ensuring that they are deployed at the right time, as and when needed.

Recruiting best talent

17. Recruitment decisions have a long, lasting impact. UNESCO will increasingly focus its recruitment criteria on generic, essential skills such as management skills, ability to work in teams, communication, project management and networking in addition to technical skills. Competency-based interviews will be introduced, to ensure that critical skills/competencies are being tested. HRM will assist Sectors for successfully handling interviews by providing training and experts to be part of evaluation panels for key posts.

18. Measures will be taken to ensure that the recruitment process is not only efficient but also cost-effective, transparent and timely.

Induction and mentoring for new recruits

19. UNESCO will extend and improve the induction process for new recruits so that new employees, at all levels, are well briefed and better prepared for their assignment. A mentoring community will also be encouraged and supported.

Gender balance

20. Except at the senior management levels, women are well represented in UNESCO staff, with a representation that is amongst the highest in the United Nations system. 2015 has been set as the target date for gender parity at Director level in UNESCO. Since 2010, near parity is achieved at ADG level. However, with 28% women Directors, gender balance at senior management level remains to be improved. The implementation of the Gender Action Plan, which sets out measures to achieve parity in 2015, will be sustained over the next five years.

Geographical balance

21. A geographically diverse workforce is fundamental for the successful programme delivery and represents a basic principle set out in the Constitution of the Organization4. UNESCO will set 4 “Subject to the paramount consideration of securing the highest standards of integrity, efficiency and technical

competence, appointment to the staff shall be on as wide a geographical basis as possible”, UNESCO Constitution, Article VI.4.


an objective of 85% of represented countries to be reached by 2016. The number of normally represented countries will also be increased.

22. The Secretariat will work proactively with non- and under-represented countries to encourage applications from qualified candidates, in line with the Action Plan to improve Geographical Balance5. UNESCO will maintain the Young Professionals Programme, competitively recruiting a targeted group of 10 junior staff at P-1/P-2 level, from non-and under-represented countries, per biennium. Young Professionals, after an initial on the job training period in different Sectors at HQs, would be assigned to the field to continue their professional development.

23. Gender balance and geographical diversity will also apply for personnel hired under other types of contracts.

Career Development

24. Career development is founded on the basis of a partnership approach between the staff member, the manager and the Organization. The professional development of each staff member is important, as the growth of each staff member benefits the whole Organization.

Staff Mobility

25. Staff mobility is an integral part of professional development. Mobility may be geographical or functional; it usually involves a longer-term assignment, but can also be short-term. It offers the opportunity to acquire new skills, knowledge and experience. The Global Staff Survey shows that a number of staff aspire to more mobility. However, except for staff in hardship duty stations, the concept of staff mobility is still not yet internalized, nor operationalized in UNESCO, and a significant number of staff have remained in the same function for extended periods of time. This lack of mobility may result in demotivation and impact on efficiency.

26. To trigger greater staff movements, staff development reviews will be conducted with staff who have performed the same functions for an extensive number of years. The purpose of such reviews will be to explore options for mobility, for the mutual interest of staff and programme delivery. Where mobility opportunities are limited or where it is not the best option, short-term assignments, intersectoral project work, developmental assignments will be encouraged. A pilot programme for facilitating exchanges between Sectors will also be introduced to foster and support inter-disciplinarity.

27. UNESCO will continue to apply geographical mobility and will review its geographical mobility policy with the purpose of updating its approach and mechanism with the best practices of other International Organizations, in support of UNESCO’s programme delivery. Mobility should be facilitated by the enhanced job opportunities in the field, resulting from the upcoming field network review. The timely reassignment of staff from hardship duty stations, undertaken within the implementation of the present policy, will continue6.

28. Support to mobility will be reinforced by maintaining and confirming that it is a clear advantage for professional development and career progression. The Executive Board decision7 confirming that, under the geographical mobility programme, field experience is an important criterion for promotion shall be reinforced. Preference for positions at P-4 will be given to staff who have completed at least one assignment in the field8. For promotions to positions at P-5 and above, flexibility and mobility demonstrated by an assignment in different duty stations and/or Sectors, will be a recognized asset.

5 186 EX/6 Part VIII, Annex 2. 6 In 2010, all staff in hardship duty stations who exceeded their standard duration of assignment were reassigned. 7 181 EX/Decision 6 (April 2009). 8 As per standing HR Manual provisions.


29. In terms of incentives to support mobility, UNESCO’s practices will be aligned to those of the United Nations common system.

30. Inter-agency mobility will be pro-actively supported; enhanced communication about the opportunities in other agencies will be put in place and possibilities for exchanges explored. Assignments in other non United Nations organizations/agencies will also be envisaged within the framework of the new policy on loans and secondments.

Career Planning and support

31. To facilitate career planning, career models like those introduced in other United Nations agencies will be developed, with practical information on possible career structures, career paths and skills sets required. Career paths may be technical specialists paths or generalists/managerial career paths, for which evidence of management skills/potential will be required as applicable. Multidirectional career paths will be encouraged, away from the traditional vertical structure.

Working across disciplines

32. Staff will be encouraged to work in teams, responsive to emerging issues and opportunities. This will enhance inter-disciplinary work as well as functional mobility within the Organization. The six inter-sectoral platforms9 foreseen in the 36 C/5 provide a clear cadre for such team work. The Organization will also foster multiple, non-hierarchical options to enable individual initiatives and suggestions about how to contribute to UNESCO’s programme and strengthen its visibility.

33. A career support service will be operational in HRM to provide staff with career information and advice. It will also coordinate a mentoring programme that will match junior professionals and newly recruited staff with a more senior staff for six months to one year to provide career coaching, network and support.

Flexible Contracts

34. Flexible contractual modalities are an important tool for the Organization for managing its human resources and adapt to changing priorities. The Organization will maintain the two existing employment streams: the long-term stream includes staff at all levels who will carry out the continuing activities of the Organization in a flexible and mobile manner. They will maintain the Organization’s institutional memory and its programming knowledge. At the same time, expertise will continue to be needed on a short- and mid-term basis. Staff and other service providers/contractors that UNESCO requires as a complementary, flexible workforce will be the short- and mid-term stream.

35. Contractual modalities will be adapted to better support the long, mid-term and short-term streams. Staff contracts will continue, of course, to be aligned on the ICSC contractual framework and the conditions of service of all employees will be aligned to other Agencies, to support the “Delivering as One” at the field level.

D. Enhancing Staff Capacity

36. UNESCO needs capable, skilled staff. Enhancing staff capacity is about developing staff capabilities to be fully effective and efficient and able to strive for results in their domains of competence. This dimension includes professional development and skills updating to ensure that staff remain professionally current, competitive and efficient, have the required partnering skills and the ability to manage networks, and contribute to UNESCO becoming a learning organization. Staff capacity requires a comprehensive, innovative cost-effective, results-oriented learning strategy 9 Culture of Peace, Climate Change, HIV/AIDS, Post-Conflict and Post-Disaster (PCPD),Small Island Developing

States (SIDS), Priority Africa.


with enhanced focus on management training. It should also ensure that knowledge is transferred effectively.

Learning and development

37. The Learning and Development programme will be a cornerstone of the human resources strategy. It will aim at effectively supporting and enabling the development of skills and capabilities essential for the successful attainment of the programme objectives.

38. There will be a clear shift from training towards staff development, and learning will be delivered through effective, interactive and flexible learning modes.

39. The Learning and Development programme will focus on the key generic skills essential for the success of UNESCO’s operations, including project and programme management, partnering and fund-raising. Critical skills such as management competencies will be supported through dedicated programmes.

40. To ensure that key specialists maintain their expertise, UNESCO will also encourage and support secondments, temporary transfers, and exchanges with universities, government departments, think tanks and other thought leading bodies.

41. Work-based learning, mobility, short-term assignments within and outside the organization will be considered as key learning modes, and so will conference attendance, scientific publications, networks and professional associations. Optimal use will also be made of the opportunities for network learning and on-line interactive programmes (as Webinars, e-learning, etc), which are both flexible and cost-effective.

42. The role of the Learning and Development Commission will be one of strategic oversight over the learning and development initiatives, encompassing all skills and knowledge development.

43. The Learning and Development budget will be reviewed with a view towards decentralizing a greater share to Sectors to finance learning activities in support of programme delivery in their specific area of responsibility.

44. Staff are responsible for their own development and the organization has a responsibility to create an enabling environment. However, when setting out expected results for the biennium, supervisors will be required to discuss and agree on one learning and development objective for every staff member under their supervision.

Management Capacity

45. In the next six years, UNESCO will work to improve the quality and capability of its management cadre, and will give priority to management skills, which are vital to the successful implementation of the Organization global strategy.


46. Appointments to positions with managerial responsibilities will be made on the basis of managerial capability or potential. UNESCO will also invest in and strengthen the mid-level Leadership Management Programme, to support the development of talented mid-level professionals.

47. Coaching and mentoring for new managers will be systematically implemented. Examples of good management practices and styles will be publicized, shared and upheld as good UNESCO examples to follow.

48. Effective management practices such as assigning challenging objectives, regular performance feedback, and installing a culture of recognition by showing appreciation and recognition of staff achievements, will be strongly emphasized.

49. The role of all managers in the professional development of staff will be reinforced. All mid-level managers will be required to report every biennium on achievements in that area.

Knowledge Transfer

50. There is a wealth of knowledge and experience among UNESCO staff. Effective mechanisms for internal knowledge transfer, such as communities of practice, will be encouraged to support the internal sharing of experiences, information and knowledge. HRM will work with ERI and the CIO to explore the use of interactive IT platforms as an effective way of sharing knowledge online. Handover mechanisms will be formalized to ensure that key knowledge and institutional memory are transferred to incoming staff. This is particularly crucial as many experienced and knowledgeable staff will retire in the future.

E. Enabling Environment

51. Creating a positive and enabling work environment is about establishing and maintaining the necessary internal conditions that support staff motivation. This implies a work environment that is safe and healthy. A work environment that is inclusive, respectful, free of harassment and discrimination; where United Nations core values are abided by, and where there is a constructive dialogue with staff and the Staff Associations. It is important in such environments to ensure that mechanisms for the recognition of outstanding performance of staff and teams be in place.

52. Staff surveys will be periodically conducted to gauge motivation, monitor perceptions and obtain direct staff feedback. Best practice indicates that an enabling environment is also the basis for establishing and maintaining a culture of mutual trust.

Environment of trust and accountability

53. The Organization will promote shared values of professionalism, integrity and respect for diversity. Relevant policies will be implemented, such as the anti-harassment, whistleblower and


anti-retaliation policy policies, and new policies such as on “conflicts of interest” will be developed, in collaboration with the Ethics Office.

54. Many staff, at all levels, are responsible for managing staff; they need to delegate authority and responsibility and to encourage teamwork, and must be held accountable for their performance. Senior Managers (ADG’s, Directors of Bureau and Directors/Heads of field offices) will be evaluated against expected results, in the same way as staff. In addition, the Director-General is committed to introducing an evaluation system for senior managers and a 180-degree evaluation system for all supervisors.

Staff recognition

55. UNESCO will ensure that individual and team contributions are recognized in a way that motivates staff and contributes to the attainment of UNESCO’s goals. A culture of high performance and recognition will be fostered by giving credit where credit is due. Staff performance reports will include a fourth, outstanding, rating as recommended by the External Auditor, which will enable to clearly identify and report on outstanding performance.

56. Informal and formal ways of recognition for a good performance, successful achievements and exemplary attitude shall be introduced and/or strengthened.

57. Innovative projects and initiatives at all levels will also be encouraged, supported and recognized.

58. The merit promotion programme will be reviewed for its impact/effectiveness. Other ways to reward high-performing staff will be explored and introduced in line with the on-going discussions in the United Nations common system (ICSC and CEB HR Network).

Staff management relations

59. Staff management relations will continue to be a priority and will be based on an open, continuous and constructive dialogue with the Staff Associations and through continuous work with the standing consultative committees. Innovative means such as staff surveys will also be used to collect staff feedback. Managers and supervisors will be expected to uphold open and constructive communication channels with staff under their supervision on a continued and regular basis.

The Bureau of Human Resources Management

60. The Bureau of Human Resources Management (HRM) should support and foster an institutional culture that is innovative, inclusive, reflexive, outward-looking and collaborative10. HRM should aim at becoming a visible, efficient, transparent and trusted partner, improve its communication mechanisms and become an enabler for successful programme delivery.

61. HRM will work towards raising its service delivery level to staff and managers. It will foster a “client service” attitude and will ensure that policies and procedures are transparent and consistently applied. HRM will maintain high standards of ethics relating to confidentiality for all individual personnel issues. A user-friendly, interactive HRM website will ensure that information on HR issues is easily found.

62. HRM will allocate, where possible, staff and/or provide training, as necessary, to specific Sectors/Bureaux/field offices. HRM will engage in a process review so as to de-bureaucratize, including a review of the delegation of authority framework. It will aim at fully implementing information systems which will support HR functions and Organization priorities in close collaboration with the CIO, thus leveraging the full potential of its Human Resource Information Systems, aiming at an up-to-date, fully operational and integrated employee database. 10 Op. cit.


63. HRM will maintain its close interaction with United Nations sister agencies and actively engage in the harmonization of business and Human Resource practices at field level and will continue its active participation in inter-agency mechanisms.

64. HRM will be measured on its performance as a support to management team and staff. HR performance targets will be agreed with the Director-General and monitored and reported on.

Conclusion

65. The HR Strategy aims at ensuring that the Organization has a capable, skilled and motivated workforce. Its objective is to enable effective programme delivery, in response to the needs of Member States. As a rolling instrument, the HR Strategy will be adapted to future challenges and requirements, as applicable. It focuses on basic, fundamental, yet critical aspects of Human Resource management; recruitment, staff development, mobility, flexibility, diversity and effective management. Progress in these areas should contribute to enhance the overall performance of the Organization, and to the change of the institutional culture, towards an innovative, inclusive, reflexive, outward-looking and collaborative culture11. The proposed deliverables are detailed in the Action Plan (Annex II).

11 Opcit.

Priorities Deliverables 2011 2012 2013 2014 2015 2016 Status as of 1 June 2012

Talent Management More attractive and informative vacancies; more user-friendly website; use of social networks

Competency-based interviews introduced, to ensure that critical skills/competencies are being tested

External candidates who have been shortlisted but are not selected, to be included in a candidate pool which will be notified of future vacancies in the Organisation.

Retirements to be monitored, as well as other staff movements, to ensure that the recruitment process is initiated ahead of time, and at least 12 months prior to the retirement date of the incumbent.

Succession planning for specific profiles and skills implemented and candidate pools set up

Improved Induction mechanisms

More Partnerships established to obtain external expertise

Enhanced use of Loans and Secondments in key areas where expertise not readily available, with Gvts, intergvts Institutions, Universities, Private Sector

Efficient, rapid recruitment process Recruitment process reduced to 6 months

Advertisement period shortened

E-recruitment in place for pre-selection and rosters

Recruitment techniques provided by HRM to managers

More qualified candidates from non and under-represented countries attracted andrecruited in UNESCO

Action plan for the improvement of Geographical Distribution in the Secretariat implemented: Outreach efforts to non- and under-represented countries identified to ensure better targeting. Target of 85 % represented countries by 2016

More qualified women candidates attracted and hired at senior management levels

Gender Action Plan continued. Gender parity achieved at Director level

Staff CapacityNew learning strategy developed, role of L & D Commission reviewed with intended increased delegation of training budget

Training offer refocused on key generic skills needed for programme delivery

New modalities of training implemented; coaching, mentoring, external training, short-term assignments ect.

Knowledge transfer mechanisms developed and implemented

Staff development reviews for staff who have performed the same functions for an extensive number of years

Management training for P-4 staff and above

Career support service expanded

Geographical mobility policy fully implemented; mobility as a recognized asset for promotion to P-5

Pilot programme of inter-sectoral exchanges and functional mobility developed

Enabling EnvironmentSenior Managers performance assessed

180° feedback implemented for supervisors

P-4 and above supervisors report on staff development objectives

Ethical behaviour reinforced by promoting ethical values

Core values (professionalism, integrity, commitment, respect for diversity) demonstrated/internalized

Revised merit mechanisms developed and implemented

Recognition for outstanding performance implemented and management of underperformance enhanced

Effective team recognition in place

Health and safety policy implemented

HRM reformed to improve service delivery

HR communication improved through website, townhalls etc.

HR processes/procedures de-bureaucratized

HRM performance measured through staff surveys

A motivated workforce, with opportunities for career progression/growth

A more mobile workforce

Enhanced accountability

Human Resources management strategy : Action Plan 2011‐2016

HRM as a proactive support to Organization and staff

Enhanced trust

Stimulating work environment

More qualified candidates attracted and recruited in UNESCO

A capable and skilled workforce

ANNEX II186 EX/25 Annex II

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186 EX/25 Add. Executive Board



ADDENDUM

COMMENTS OF THE UNESCO STAFF UNION (STU)

SUMMARY

In accordance with item 2805.7 of the UNESCO Administrative Manual, the UNESCO Staff Union (STU) submits its observations on the report by the Director-General.

1. Noting that UNESCO has had numerous human resources policies and strategies over the years, none of which have been consistently and transparently implemented, and recalling the following extract from the United Nations Joint Inspection Unit review of UNESCO’s administration in 2000 for the last General Conference (35 C/26, Part I Add.,1 October 2009):

“The Organization has well-established staff regulations and rules for the management of human resources [...]. Significant deviations have occurred in recent years in the implementation of existing regulations and rules. […] Only through a determined effort to respect the Organization’s policies, regulations and rules fully will the administration regain the confidence of the Member States and the staff.” (page v),

2. STU requests that these rules and regulations be respected fully at all levels, that their interpretation be harmonized within the Organization and not be left solely to the discretion of each sector or field office (see STU Info – STU/3eBE/10/041 and STU/3eBE/10/046 “Recruitment and career development at UNESCO – STU denounces the shortcomings and requests concrete measures”.

3. The Executive Board has before it an External Auditor’s report that lays out and confirms the lack of respect for existing rules and procedures for recruitment and end of service (186 EX/30 Part IV) and a specific report on the case of the Division of Basic Education (186 EX/30 Part III). At its 185th session the Board analysed the report on a division in the Science Sector. It has had several reports on field offices, the latest being the Jakarta Office (186 EX/30 Part II). The current report analyses the critical vacuum in which decisions are taken concerning the recruitment and

PARIS, 9 May 2011 Original: English/French


186 EX/25 Add. – page 2

extension of service of senior management in particular. JIU has repeatedly tabled comparative and objective reports on these critical issues, which remain unaddressed by our governing bodies. The External Auditor states: “The independence of finance and administrative officers is nevertheless a key factor of the Organization’s internal financial control […]. It would be compromised by a reporting line to sectors’ executive offices […]. The situation of AOs in the field is often critical and the vacancy rate gives cause for concern. (In February 2011, 19 posts vacant).” 186 EX/29, page 6 English version.

4. STU is also particularly concerned by the lack of serious attention paid to the role of the international civil service and UNESCO’s personnel conveyed in the independent external evaluation and also in document 186 EX/17 (follow-up by the Secretariat and Executive Board Working Group on the IEE). According to the Standards of conduct for International Civil Service, the concept of integrity enshrined in the Charter of the United Nations embraces all aspects of behavior of an international civil servant, including such qualities as honesty, truthfulness, impartiality and incorruptibility. These qualities are as basic as those of competence and efficiency, also enshrined in the Charter. (cf. point 5. Standards of conduct for the International Civil Service of 2002 http://icsc.un.org/resources/pdfs/general/standardse.pdf) However, by putting the accent on mobility and flexibility as if they alone were sufficient for UNESCO in the 10 years ahead, the IEE and the Administration’s response omit this reference to core values of UNESCO’s personnel.

STU calls for increased partnership with the staff associations

5. STU is ready to assist the Director-General in restoring the core qualities that we all stand for: an international civil service bound by the highest standards of integrity, political and commercial neutrality and professionalism at all levels of our Organization. This will require a recentralization of authority and the firmest commitment by senior management to respect those standards. It will also require a reformed and independent internal justice system for all personnel and a rigorous ethics function.

6. STU considers that these core concerns remain the most urgent reforms for the Director-General to address. It will not be possible to “reposition” or “meet future challenges” based primarily on further visibility and public relations or increased extrabudgetary funding and flexible contracting. Modesty in our role will help enhance our credibility as a professional body at the service of all our Member States.

Ensuring more effective recruitment

7. Recruitment should not be geared solely to the supervisor’s perception of his or her service, but also be consistent with the global personnel strategy, as part of the Organization’s strategy. A professional recruiter or external recruiters under contract could support such a process objectively, and should be hired by UNESCO. On several occasions, STU has drawn the attention of the Administration to the denial of skills (STU Info – STU/4eBE/11/028 “Recruitment and career development at UNESCO, denial of skills within the Education Sector” practised by some sectors, and the virtually systematic use of external recruitment.

Promoting improved talent management, capacity-building and staff development

8. Training policy needs to be reviewed for certain professions (programme assistants, programme specialists, administrative officers (AOs), etc.) in order to encourage operational mobility and personal development. Consideration should be given to the development of an information network, a system of intersectoral exchange, and training which is better suited to the nature and professional requirements of particular post.

9. STU has been urging for many years, in accordance with practice in the United Nations, that an aptitude test be introduced with a view to upgrading the skills and abilities of General Service staff so that they may qualify and be eligible for Professional posts (pursuant to recommendation 9

http://icsc.un.org/resources/pdfs/general/standardse.pdf

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of the External Auditor). “UNESCO should strengthen the link between training and promotion. To that end, the Organization could periodically validate professional experience, thus enabling internal candidates (in particular those in the General Service category) to compensate for the lack of a diploma by their professional experience when they apply for a post” and “the Bureau of Human Resources Management will undertake a study to determine the appropriate procedures for enhancing the links between promotion and training, taking into account the recommendation of the External Auditor” (182 EX/48, page 12).

10. The annual report of the International Civil Service Commission for the year 2010 recalls the key principles of an effective management system:

“For an organization’s performance management system to be viable, the following organizational requirements must first be in place:

(a) a performance management culture;

(b) a system of good governance;

(c) useful, reliable data, backed up by appropriate technology;

(d) effective processes;

(e) a capable workforce;

(f) identification of the roles and responsibilities of executive management, line managers, the staff member and other key players;

(g) an understanding that the measurement of a staff member’s performance in isolation is not an effective means of improving poor performance or rewarding high performance, but can only be addressed through good quality management and;

(h) investment in developing and promoting a culture of appreciation and engaging in everyday practices that encourage staff members to recognize their colleagues for outstanding work or behaviour.”

11. With a view to ensuring fairer and more impartial staff performance evaluation, STU would like to see the rapid introduction of 360° evaluation. Under the current system, no provision is made for the evaluation of supervisors by their staff. This type of information would nevertheless be very useful in order to improve supervisors’ performance and provide them with a better overall overview of their management duties (STU Info – STU/64eC/11/002 “Performance evaluation”).

Ensuring more valuable staff mobility throughout the Organization and at Headquarters

12. STU, like the United Nations Headquarters staff and oversight services, has denounced the notion of “mobility for mobility’s sake” in our addendums on decentralization policies. A major obstacle to functional mobility within the Organization is the fact that staff costs are included in the budgets of individual sectors since the management of the posts established in the C/5 document has been decentralized to the sectors. Even if a post is vacant, its budget is allocated to the corresponding sector. And given that staff management has been decentralized to the sectors, the sectors consider posts to be a kind of capital that cannot be shared with others. As a result, UNESCO is divided into bastions which do not cooperate sufficiently. This is inconsistent with a policy of mobility throughout the Organization and, in particular, at Headquarters. STU retierates its wish that staff management be recentralized to the Bureau of Human Resources Management (HRM) in order to increase intersectoral staff mobility.

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Partnerships and the deprofessionalization of UNESCO: the end of the “honest broker” myth for UNESCO staff?

13. STU is worried by the increasing reference to “partnerships” with the corporate sector which are gravely unregulated at United Nations-wide level. STU wishes to draw the Board’s attention to the 2010 JIU Report on the Global Compact. Its Role and Functioning, in which the authors sound the alarm in great detail concerning “bluewashing” and its inherent risks. We note that the proposed human resources strategy as well as the Director-General’s plans for the implementation of the Independent External Evaluation include the use of private sector/corporate or foundation personnel within the Organization. There is no precedent for this evident conflict-of-interest proposal. And since UNESCO still has no obligatory financial and conflict of interest disclosure programme, which should have been in place since 2006 (either in a totally independent ethics function or with an independent external body), STU considers that we are heading for an even less accountable and transparent future. Indeed, the very concept of “conflict of interest” will have no place in the UNESCO Secretariat.

14. STU is deeply concerned that the proliferation of consultants and consultant companies, donor-driven activities and commercial partnerships are further weakening UNESCO’s previous role as an “honest broker” among conflicting or self-interested political or commercial agendas. This becomes more serious as the senior management are presenting their own “reform” and “human resource strategies” as follow-up to the IEE evaluation, and indeed as follow-up to the working group of the Executive Board’s recommendations (186 EX/17).

Ensuring more effective management within one UNESCO

15. We propose that the feasibility be studied of drawing up the Organization’s budget with a separate staff costs budget, the management of which would be entrusted to HRM with a view to strengthening its integrated human resources management strategy, as has always been urged by STU. Staff would benefit from no longer being identified with an established post within a sector, but rather with functions that would vary in accordance with staff priorities and the Organization’s requirements.

16. STU agrees that “a house divided against itself cannot stand”. However, we consider that a structural engineer and architect need to working together to rebuild UNESCO with reinforced concrete. The following need serious attention: (a) a rigorous ethics function and internal justice system for all staff; (b) leadership by example from the top to withstand political, financial or conflict-of-interest agendas; (c) a recommitment to the transparent, objective and professional standards at all levels of the Organization. We will then fulfil the unique role in education, science and culture with which UNESCO was mandated some 60 years ago, and still be relevant to all our Member States in an equal, neutral and effective manner.


186 EX/25 Add.2

Executive Board



ADDENDUM 2

SUMMARY

In accordance with item 9.2.7 of the UNESCO Administrative Manual, the International Staff Association of UNESCO (ISAU) submits its observations on the report by the Director-General on the human resources management strategy.

PARIS, 9 May 2011 Original: French


186 EX/25 Add.2

VIEWS OF THE INTERNATIONAL STAFF ASSOCIATION OF UNESCO (ISAU) ON THE REPORT BY THE DIRECTOR-GENERAL ON THE HUMAN RESOURCES MANAGEMENT STRATEGY (186 EX/25)

A. General observations

1. The international civil service is the workforce behind all of UNESCO’s actions throughout the world. It is largely because its staff members, its core asset, are ready to relocate to the countries where they are deployed by the Organization that it is able to carry out its activities worldwide.

2. Now more than ever, the Secretariat must rise to numerous challenges. Its ability to deploy talent to effectively meet these challenges depends largely on policies and structures introduced to attract and give value to the staff needed by the Organization. Yet human resources management is haphazard, fragmented and inconsistent. A number of historical, structural and political factors explain this state of affairs.

3. The main problems with regard to human resources management are:

(i) there has been delegation of authority in this area without appropriate training and without increased accountability to accompany delegation;

(ii) human resources management methods are vague and involve numerous superimposed layers, which attenuates responsibility;

(iii) senior staff are appointed on the basis of political considerations following a process that is not transparent and that can result in the selection of candidates with little, or even no management experience, in a complex and multicultural environment;

(iv) policies and directives, when they exist, are not always clear or coherent;

(v) furthermore, the application of these policies and directives is erratic;

(vi) anonymous accusations propagate fear, exacerbating deteriorating social conditions and mistrust towards the administration;

(vii) lastly, the internal system for the administration of justice lacks a balance of power mechanism and staff representatives are increasingly being made to toe the line.

4. All of these factors have served to weaken the Secretariat’s international civil service and to make it less attractive. This deterioration manifests itself in various ways:

(i) prevalence of short-term contracts creating a lack of job security;

(ii) abusive recourse to the recruitment/rehiring of retired staff members or staff members who should retire;

(iii) supervisor control over staff careers;

(iv) limited or nonexistent controls and sanctions in cases of abuse of power;

(v) impunity in certain cases of conflict of interest, fraud, embezzlement and corruption;

(vi) very limited opportunities for career advancement;

186 EX/25 Add.2 – page 2

(vii) persistently high percentage of vacant posts in certain field duty stations.

5. It is difficult to measure the cost to UNESCO of the gap between its lofty goals and aspirations and those of its staff. What is clear is that in this type of situation, either individuals exploit the Organization that employs them or the Organization exploits them, if not both.

B. Specific observations

6. The Director-General submitted her report on the human resources management strategy of the Organization in document 186 EX/25. This strategy comes with an action plan based on six main objectives. It recommends 12 improvement measures relating to workforce planning for critical functions, effective recruitment, sustained implementation of gender and geographical balance action plans, managerial and partnering skills, knowledge sharing and transfer, new learning, training and staff development strategies, constructive dialogue with the staff associations, merit and recognition mechanisms, 180-degree performance feedback for supervisors and reform of the Bureau of Human Resources Management (HRM).

7. The document suggests that there is an urgent need to implement several measures proposed, ranked in order of priority. It does not show, however, any link between the various priority actions for 2011. Neither does it show how the sectors will implement these measures or who would be responsible for their implementation. Nor does it provide any details on financial implications. While it provides for the implementation of many measures within the limit of resources available, it does not specify their amount. In addition, no information is provided on the expected results or criteria for assessing the progress achieved.

8. The incentives and initiatives proposed in the document to motivate staff and recognize their merit are clearly insufficient. Little emphasis is placed on training and its links with professional skills development, and links between training and mobility or career organization are not referred to. No mention is made either of one aspect of the principle of accountability, which the International Staff Association of UNESCO (ISAU) considers would improve relations between supervisors and their staff and staff productivity: 360-degree evaluation. Nor is there any mention of the responsibilities of management with regard to the career development and welfare of officials under their authority.

9. Lastly, ISAU cannot acknowledge that it was consulted during the preparation of the “HR strategy” as claimed in paragraph 3 of the document under consideration. Moreover, contrary to what is stated in paragraph 11 of the document, there is no “constructive dialogue” with the administration which, in fact, ended the consultations by refusing to recognize the representativity of ISAU for 2010. This required us to suspend all cooperation relations at the end of last year. The joint efforts undertaken recently by both the President of ISAU and the Directorate to agree on a solution to end the crisis rapidly have unfortunately not yet been successful.

10. This unfair and discouraging situation for all our members and supporters has created a persistent unpleasant atmosphere. If it is not resolved immediately, we will have no choice but to resort to any form of industrial action, including a call to strike at any time, to restore the status of ISAU as a staff representative association in 2010.

11. Nor will we accept the condescending approach of some administration officials towards our representatives, which seems to have become the rule, particularly since the influence currently exercised officially by staff associations on human resource management through the established channels is negligible. Proposals, views and recommendations and objections expressed by ISAU observers during the deliberations of advisory committees – such as the Junior Personnel Advisory Board (JPAB) and the Advisory Board on Individual Personnel Matters (PAB) – are often ignored, without any consequences.

186 EX/25 Add.2 – page 3

12. Thus, instead of strengthening staff representation through ISAU, consistent attempts, whether deliberate or subtle, have been made to undermine us in forums for consultation and dialogue. There is a desire to control the scope and exercise of the mandate conferred upon us, with varying results. For instance, the views of ISAU are brought to the attention of Member States, but the working documents that must be submitted to it for consultation were provided to it only a few days before the opening of the current session of the Executive Board. Since we are allowed only very little time to prepare observations on these documents, at best all we can do is react and at worst we have to endorse them without comment. Reforming and strengthening the relations between administration and the staff associations is thus urgently required if we are to establish a genuine partnership and fruitful dialogue.

C. Conclusions

13. It is often said that UNESCO faces new challenges requiring flexible, multi-skilled staff, prepared to work everywhere and to travel there as soon as possible. No mention is made, however, of the efforts that the Organization is seriously prepared to undertake to ensure the welfare and good working conditions of its staff. There is no doubt that all members of the Secretariat are dedicated to its service.

14. The Organization’s senior officials should stop repeating that staff is its main asset. Staff members wish to be treated, first and foremost, as human beings with dignity. Their tolerance to abuse of power and authority, insecurity, marginalization, precariousness, injustice and discrimination is limited. Accordingly, ISAU recommends a more robust and consistent human resources management strategy at UNESCO, which would attract the best candidates and provide comfort, consideration, recognition and, where appropriate, reward to Secretariat officials.

15. In conclusion, we wish to stress the essential role of loyalty, respect, dignity, justice and humanity in maintaining a positive state of mind, and emphasize that without these principles, the basic values enshrined in 186 EX/25, namely “Delivering as One”, “commitment to UNESCO’s mission, professionalism, respect for diversity and integrity” will remain empty slogans.

For the Executive Sidiki COULIBALY President of ISAU


Documents

UNESCO. Executive Board; 186th; Report by the Director ...unesdoc.unesco.org/images/0019/001921/192101e.pdf · the human resources management strategy for ... • HRM bureau reform