The Wellspring

Model United Nations conferences are great for learning about relevant international issues and the various national perspectives on them, but generally not that great if you want to learn how negotiations at the United Nations and its specialised agencies actually operate. While it’s useful to be familiar with the formal UN rules of procedure, the reality is that much negotiation and decision-making happens behind the scenes, away from the formal, and largely declaratory, process.

With more and more young people getting involved in these processes, it’s useful to understand how they really work. Here are few tips that I’ve gathered from my participation, along with some resources that you might find useful in helping plan your participation.

Part 1 explains how UN negotiations work. Part 2 will give you some pointers on how to maximise your participation.

Composition and participation
UN agencies are governed by groups of member states, known variously as Executive Boards or Governing Councils. They usually meet yearly or every two years, and discuss the budget and work plan, along with any pertinent issues that change from meeting to meeting. Apart from that, there is considerable variation in how these governing bodies are composed: the number of member nations, whether they are static, elected or rotated, and how often they meet is determined by each governing body themselves.

The meetings of many governing bodies involve more than just members:

• The preparatory work for these meetings is prepared by the permanent representatives to the agency, which deal with each nation’s day-to-day participation.
• Non-government organisations may participate in a preceding Civil Society Forum, to negotiate a common NGO position on important issues. They may also be accredited to the main governing body meeting as observers, where, whilst they cannot speak (unless invited by the Chair), they can lobby national delegations for action.
• Observer status may also be accorded to non-member nations, intergovernmental organisations and other United Nations agencies. Despite this status, many meetings actually allow observer nations to make statements (called an ‘intervention’) during negotiations. Observers are unable to vote, but many governing bodies rarely vote anyway, preferring instead to make decisions by consensus.
• Towards the end of the meeting, a high-level segment may be scheduled, in which relevant national Ministers (or in rare cases, heads of government) may participate. Their purpose is two-fold: firstly, to network and co-ordinate international environmental policy, and to generally discuss issues of interest with their counterparts internationally; secondly, to deal with any issues left over from the primary meeting. It is thought that Ministers, with greater political freedom, can move with more leeway and bring more options to the table in an attempt to get a resolution.

Participants with different status often wear accreditation badges of different colour.

Documentation
There are two main types of documentation dealt with during meetings of a governing body:

• The first is an information document, labelled INF (for example, information documents for the 23rd Session of the UNEP Governing Council were labelled UNEP/GC.23/INF/…). These contain relevant supplementary information that the delegation may like to consider in their negotiations. They are the basis for discussion only, and thus do not require substantive action to be taken, and cannot be amended (even if a delegation feels that the information contained is incorrect).
• The second, more important type of document is simply labelled after the meeting at which it is used (for example, these documents for the 23rd Session of the UNEP Governing Council were labelled UNEP/GC.23/…). These require substantive action: that is, discussion, consideration and / or a decision. A number of these documents have draft decisions appended; these are prepared by the committee of permanent representatives, Secretariat, and / or Chair.

Because preparatory work will already have been completed, much of the text of a resolution or declaration will have already been resolved. This text is unbracketed. Conversely, unresolved text to be negotiated is contained within square brackets ([...]).

Caucuses
A number of nations with shared concerns may decide to work together and speak collectively. These groupings are called caucuses and there are two main kinds.

The first is policy-based, with the main groupings being:

• G77 + China (see http://www.g77.org/): Founded in 1967, this is a grouping of more than 130 developing nations.
• The EU (see http://europa.eu.int/): This tight, treaty-bound grouping encompassing most of Western Europe, much of Central Europe and, increasingly, Eastern Europe.
• JUSSCANZ (Japan, the US, Switzerland, Canada, Australia, New Zealand, and others): A loose group of non-EU industrialised nations.

The G77 and EU habitually speak with one voice (through the President), but JUSSCANZ is a more informal grouping, and states often speak individually.

The second type of grouping is regional: Asia / Pacific, Africa, GRULAC (Group of Latin America and the Caribbean), Central / Eastern Europe and WEOG (Western Europe and Others).

The G8 (see http://www.g-8.org/), the Commonwealth (see http://www.thecommonwealth.org/) and the Arab League (see http://www.arableagueonline.org/) may also meet, though these groupings are much less solid.

Negotiation Process
The most basic forum is one where all member nations are represented. This is called the Plenary or Committee of the Whole (depending on the procedural rules adopted). In the Plenary, nations may announce their national initiatives, ask questions of other nations, and deal with the majority of procedural issues (such as congratulating the Chair on his or her election). The Committee of the Whole often deals with programmatic, administrative and budgetary issues, where discussions are often more technical and substantive. In many sessions, the differences between these two groupings are not very clear, and it will seem as if much of the agenda has simply been split into two parallel streams so as to allow for a shorter meeting.

Within both groups, the agenda may be dealt with in an order decided by the group itself.

If, in either forum, consensus cannot be reached, they may arrange for the formation of a drafting or contact group. These groups consist of the nations primarily involved with the issues being discussed; though it is customary to take note of the general, wider opinion of the forum in situations where smaller delegations cannot spare a delegate for a drafting group. The smaller drafting groups negotiate intensely for a resolution, which, if reached, is referred back to the grouping from which it was derived. It is interesting to note that much of the negotiating and lobbying happens on an informal level in the corridors and over meals. (In fact, informal groupings that meet to strategise are often called corridor groups).

As mentioned earlier, meetings often conclude with a high-level segment where Ministers, with greater political latitude, can negotiate intensely for a resolution.

On the last day of the meetings, a final, full Plenary will be held where all decisions are gavelled through in a final act of approval.

Further Information

• Further information regarding civil society participation in UN meetings can be found in the United Nations Non-Government Liaison Service’s excellent publication: Intergovernmental Negotiations and Decision Making at the United Nations: A Guide. This publication explains the governance and decision-making fora and processes of the UN system. You can download the booklet free of charge from http://www.un-ngls.org/d_making.htm.
• The United Nations Association of Canada publishes a similar (yet less comprehensive) guidebook for young people participating in international UN meetings called Navigating International Meetings: A Pocketbook Guide to Effective Youth Participation. You can download the pocketbook free of charge from http://www.unac.org/en/pocketbook/index.asp.
• For a more general look at how the UN is organised, the New Zealand Ministry of Foreign Affairs and Trade has published since 1961 an annual United Nations Handbook, giving comprehensive information on the structure, aims and membership of the six principal organs, subsidiary bodies and associated bodies. The book can be ordered through your nearest NZ Embassy or High Commission for NZ$30.00. For more information, see http://www.mfat.govt.nz/Media-and-publications/Publications/index.php#hardcopy.

As expected, news has been very slow indeed over the Christmas season. The biggest development has been new UN Secretary-General Ban Ki-Moon’s surprise appointment of Dr. Asha-Rose Migiro, Tanzania’s Foreign Minister, as his Deputy. Dr. Migiro’s had not been named in lists of speculated candidates, which had included a number of other women from developing nations.

As always, UNSG.org has excellent coverage of the developments.

Ban Ki-Moon was sworn in on Thursday as the UN’s next Secretary-General, to replace outgoing chief Kofi Annan who has served in the position for the last ten years. In a new practice introduced by himself, Ban was sworn in with his left hand on the UN Charter.

Ban will now have to select his Deputy Secretary-General and the ‘holy trinity‘ of UN Undersecretaries-General - Peacekeeping, Political Affairs and Humanitarian Affairs. Last week, Ban noted that the top three challenges that will face him when he assumes the office on 1 January, 2007 will be ‘reforming the UN secretariat, strengthening the capacity to fill mandates and rebuilding trust among key players’.

For more information, see UNSG.org’s excellent coverage at http://www.unsg.org/wordpress/archives/182.

After following the long consultative and developmental process, I missed the launch of the World Bank’s World Development Report (WDR) 2007 (oops!), which took place at the Bank’s annual meeting in mid-September in Singapore, and is, this year, entitled Development and the Next Generation.

The Bank’s annual Development Reports, which analyse the economic, social and environmental state of the world today, are perhaps the Bank’s best-known contributions to thinking about development. Each year the WDR provides in-depth analysis of a specific aspect of development. Past reports have considered such topics as the role of the state, transition economies, labor, infrastructure, health, the environment, and poverty.

Themed around young people, this year’s report argues that developing countries which invest in better education, healthcare, and job training for their young people between the ages of 12 and 24 years can produce surging economic growth and sharply reduce poverty.

With 1.3 billion young people now living in the developing world - the largest-ever youth group in history - the report says there has never been a better time to invest in youth because they are healthier and better educated than previous generations, and will join the workforce with fewer dependants because of changing demographics. However, failure to seize this opportunity to train them more effectively for the workplace and to be active citizens could lead to widespread disillusionment and growing social tension.

For further information, and to download abridged or full versions of the report, see the official website at http://www.worldbank.org/wdr2007/.

The United Nations Environment Programme invites applications from young people for the upcoming UNEP Tunza International Youth Conference, to be held in Leverkusen, Germany, from 26 - 30 August, 2007.

The Tunza International Youth Conference is a biennial event that aims to foster a generation of environmentally conscious citizens who will better influence decision-making processes and act responsibly to create a sustainable world. Organized for young people (15 - 24 years old), the Conferences provide opportunities for participants to learn from one another, share experiences and ideas on community-based environmental actions and develop joint strategies on promoting environmental protection.

The Conference will also provide a forum for youth representatives to examine how UNEP and other UN agencies are working with young people for sustainable development both regionally and globally, and to learn new skills and to forge new global partnerships for sustainable development.

Participants of the Tunza International Youth Conference also elect and set the agenda for the next two-year term of the UNEP Tunza Youth Advisory Council.

Applicants must be:

• Born between 26 August 1984 and 26 August 1992.
• Nominated by an environmental / sustainable development organisation with which they work, and of which they are an active member. Organisations must nominate both a male and a female candidate, of which one will be selected.
• Able to work and communicate effectively in English.

Limited financial support will be available for some participants from developing countries only.

For more information and to apply online, see http://www.unep.org/tunza/youthconference/.

Applications close 28 February, 2007.

Note: Having served as Special Envoy for Young People to UNEP, I can say that the experience was terrific, and especially enlightening if you’re hoping to get some insight into how the UN system works. Strangely, Australia doesn’t usually have very strong representation at UNEP events - I don’t think many people know of the opportunity - but where Australians are present, our friendliness and eagerness to lead mean that we usually do very well in the elections. (Though I’m not sure if this is because we’re genuinely liked or because others find our eagerness a little intimidating: Australia is formally a part of the Asia & the Pacific region, which puts us with people from Kiribati to Kazakhstan, so culturally the rest of the region is quite different, and generally not as comfortable with putting themselves forward for nomination.)

Two reports on youth employment have recently been released:

The International Labour Organisation (ILO) has released a publication entitled ‘Global Employment Trends for Youth 2006‘, an updated and more comprehensive version of the 2004 report analysing the labour market trends of young people. Some key statistics indicate a rising number of unemployed young people globally, increasing from 74 million to 85 million between 1995 and 2005. Moreover, more than 300 million young people, or approximately 25 per cent of the youth population, were living below the USD$2-per-day poverty line. For more information, see http://www.ilo.org/public/english/employment/strat/global.htm.

Mission Australia has launched a new strategy to tackle unemployment amongst young Australians, calling for greater coordination between governments, business and community, with special attention (and funding) to the needs of Australia’s most marginalised young people. Mission Australia says concerted action is needed to engage thousands of marginalised young people and reduce youth unemployment which is four times (14.3% for 15-19 year olds) and two times (6.7% for 20-24 year olds) higher than unemployment among those aged 25 and above (3.6%). The publication is a community-business partnership between Mission Australia and its Youth Strategy and Advocacy Group and is based on several years of national and international research and analysis. For more information, see http://www.missionaustralia.com.au/cm/p.aspx?n
=QXRCS-ZLJZU-GIKEK-YMLMK-GCRXT&MID=MXTOI-GIJBU-WHCNS-KHPDP-VNVSJ.

The Sauve Scholars Foundation (which I misread momentarily as ‘Suave Scholars’ - oops!) is inviting applications for their residential leadership and professional development programme at McGill University. Successful applicants will have receive a scholarship of $30 000 for travel, tuition, housing, meals and supplies for eight months in Montreal ‘to research, reflect, question and enlarge upon their understanding of the state of the world and their roles in effecting positive change.’ They will also attend weekly seminars featuring senior professionals from the media, politics, business, academia and the arts, and travel on group excursions to ‘ academically and culturally stimulating sites in the northeastern United States, as well as adventure trips in Canada’s dramatic north.’

Participants will have the opportunity for research produced as a result of their residence to be published on the Foundation’s website, or in hard copy.

Eligibility for the programme is limited to young people worldwide under 30 who have completed at least one undergraduate degree. Successful applicants will be highly motivated, have a strong academic record and have demonstrated leadership potential through involvement in university affairs or the broader community.

For further information, visit the Foundation’s website at http://www.sauvescholars.org/.

Applications close 31 December, 2006.

Vietnam will be the first country to test the previously-mentioned ‘One UN’ initiative to streamline the efforts of multiple agencies and help end the waste of resources. The plans will see 11 agencies (including UNICEF, the UN Development Programme and UNAIDS) currently housed in 10 separate buildings relocated to one Hanoi building as part of a large joint program, to be up and running by the end of January, 2007.

For more information, visit the Reuters news article at http://www.alertnet.org/thenews/newsdesk/HAN2829.htm.