bovenNrNc BoDY

INTERNATIONAL LABOUR OFFICE
BUREAU INTERNATIONAL DU TRAVAIL
OFICINA INTERNACIONAL DEL TRABAJO
bovenNrNc BoDY
CONSEIL D'ADMINISTRITTTON
'CONSEJO DH ADMINiSTRACION
i
G.B.145/7,O./D.2/2
145ue sesslon
Genbve,
1950
tlai
1
INTERNATIONAL ORGAN ISATIOI\JS
COMMITTEE
COMt,.iISSION DES ORGANISATIONS
INTERNATIONALES
Deuxibue question
COMISION DE ORGANIZACIONES
INTERNACIONALES
e lfordre du jour
EYAITIATION DES PR.OGRAI.,fl,,trS DES 1.]ATIOI\S UIVTES
ET DES II{ISITIUTIOISS SPEC]AIISEES POIIR IA
PER]O}E 1959-1964 - RAPPORT DIEITSEI,EIE PRESENTE
PAR IE RAPPORTEI}R DU COJ,.IITE DES NVAIUATIO\TS
DE PROGRAi'.{T}ES DU COiiiSEIIJ ECONOI,iIQIIE ET SOCIAI
A I,A TRE}iTIEiflI SXSS]ON DTI COI'ISEII ECOI,(-OI,IIQIIE
ET SOCIAI, DES NATIOI{S U}T]ES
1.. la Couuissj-on des organisations internationales se
souviendra que, lorsqu?il a 6t6 d6cidd que les I'Tations Unies,
110.I.T., la F.A.0.7 1rU.ltl.ErSrC.0. I l-10,i,'i.S., 1t0,I{.}1. et
lrAgence internationale de lt6ncrgie atouique dlaboreraient,
en r6ponse i une de;ande d.u Conseil 6conoi::lque et social d.cs
ITations Unies, une dvaluation de leurs prograirues pour 1a p6riod.e A959-1964, qui serait souulse h un Cor:iltd des dvaluatlons
institu6 par 1e Conseil, il a 6td ddciddr oh'^.r6i:e teupsr gue
le Couit6 des 6valuations dtablirait lui-i-r6ue un rapport drenseilble et Ie pr6senterait, avec le texte des 6valuations ellesu6ues, b ler trerrtibr-re session d.ir Conseil dconoulque et social
(;ui.riet t96o;t.
2, tre texte anglals du rapport drenseubLe qul vlent dtdtre
6tab1i est joint au pr6sent docrrr:ent, pour 1!infor.:ation c1e la
Coiruission des organisations lnternatlonales2.
1 vo1" docunent G..B. 147/r.0./D,a/L, lrdvaluation de l-r 0. r.T.
nodlfide pour tenir coupte des vues exprludes par le conseil
dtadulnistration b ss 14J'ne sesslon, a 6t6 couuuniqude aux
ItTations Unles i, la fin de 1959 et a 6td publlde da:rs le Bulletin
-OE{ipfg-L, vo1. XIIIIT Do 1, 1960,
2- le texte frangals dc ce rapport nrest pas encore d.isponibl-e. les passages qui figurent dans 1es paragraphes 4 et suivants ne constituent donc pas fa versj-on frangalse officlelle.
7
2-
9gg@c..
surlg
rappgrt
d I enseutrl..e
5. le rapport a 6t6 ccnsid.drd par le Courltd adnlnlstratif
de eoord,ination, D. sa trentibue session (ZI-ZA avril 19q0). Le
C.A.C. a pr6sent6 &, son sujet 1es cou^,:entaj-res suivantsr i
C.A.C. a exarind avee 1e plus grand int6r6t le
rapport dtenseuble sur l-es 6valuations de prograilueo pour
1959-1964. Il- tient b e:rpriaer sa vive satisfaction du
soln avec lequel- le Coultd d.u Conseil- 6cono;:1que et soclal
a consu1t6, ) tous les stades de lrdtablisserrent de ce rapport, des reprdsenta:rts des orga:risations 1nt6ress6es.
rrle C.A.C. est largenent dtaccord sur les conclusions
gdndrales du rapport dtense;bIe. I,e principal problbue
auquel dolvent faire face tou.s les i,reHbres de 1a fai.rille
des }i;ations Unies est c1e'suivre le rythne sans cesse aco61616 d,e ltaccroisse'itent des besoins drune coiluunaut6
international-e of lcs aspirations dc plus en plus 6]ev6es
des per-rpl.es repr6sentent une vdritable r6volution; il appuie
sans elucune rdserve l-a cor:clusion du Couit6 des dvaluatlons
selon 1aquel1e, drr point c1e vue d"es besoins, la situation
actuelle ne saurait 6tre consld6rde avec un opti-rii-sr:e conplaisant. I.,e C.A.C. reconnait l-a responsabilitd q.ui lui
incoi-ibe ct nthdsitcra pll,s b prendre les lnltiatlves qui
pourront se r6v61er n6cessaires pour assurer une coord.ination plus 6troite et plus efficace. les ccnclusions d.u
Cor:116 des dvaluations lu.i seront trbs utiles ir cette fin.rl
rrT,e
Ig!,Ufe_ q!_. reep_g=It'-d'. e nsgllblg
4, Ia Connlssion des organisations intc:=ntlonales notera
avec int6r6t que le paragraphe 15 du rapport drenseubl-e indlque
claireuent que les ,6valuatlons ont 6te congues cor.ti.le une 6tape
ird.u processus dynauique que constitue lraccroisser:ent progressif
de lrefficaclt6 de ltOrganisatlon Ces lilatlons llnics et des institutions sp6cial-is6es en tant qurinstruuents susccptibles
dralder tous l-es j)a.ys d"u. nonde b d6velopper l-eur icononie et b
1 voi* G.B.:r4'/r,0./D,3/j : vlngt-quatribne rapport du
Coi-:1t6 adr.:inlstratif de coorclj-nation, paragraphes 1 et 4. tre
texte frangais de ce rapport nrest pas non plus parvenu au Irureau.
les deux paragraphes reproduits icl ne sont donc pas la version
off 1clell-e.
,r
i
-3leur situation sociale b une cadence trbs acc6l6r6ett,
qutelles sont dirig6es vers une eoordination plus poussde t'qui
ni Ia cons6quence
ntest pas ltaboutissement iLtune centralisation
trstest
qui
r6alis6e par
mais
de directives ou d.tord.res d.oruc.6stt,
1a persuasion, gr$ce b des consultationsp et par Ia libre convergence des efforts congus pour am6liorer 1e sort de lthumanitdtt,
qutil ne faut y volr traucune tentative d.e restreindre ltautonomie des organisations relevant des Nations Uniesrr, et qurelles
ne sauraient rren aucune fagon enlever aux organisations Ia
latitude d.ont elles doivent joulr pour flxer leurs prograumes
d.rune ann6e b lrautrer. Ce rapport respecte donc entibreurent
ltaccord intervenu lorsqutune d6l6gation ilu Conseil d.tadministration a rencontrd b }iew-York, en octobre 1958r trDe d6l6gation
du Conseil 6conomique et social (G.B.l4O/I.0.h.Zfi, novembre
19Ee r et c.B.l4on6/24, novembre 1958 ) .
Itaction lnbernationale en relatlon avec les besoins selon le
am6l-1orer
5. En ce qui concerne les besoins, 1e Comit6 des dvaluationsr &u paragraphe 344 d.u rapport d.tensemble, d6clare ; tfIls
sont dtune tel-l-e ampleur qurils constituent un d6fi permanent
b 1a conscieuce et a ltintelligence ile lthumanit6. Au fur et b
mesure que lron conmence b, prendre conscience de ces besolns,
b 1es ressentir v6ritablement et qu'i1s se traduisent en d.es
demandes d.6l-ib616es d.tam6]iorations, i1s menacent 1a stabilit6
des gouvernements nationaux et d.e lr ordre lnternational. 11
faut faire beaucoup plus encore, m6me dans certalnes d.es r€gions
or) Ia positlon dont partent 1es organisations internatlonales
pour leur actlon est trbs solide. En dtautres mots, l-tactlon
internatlonale dans le d,omaine 6conomique, Ie domaine soclal
et 1es d.omaj-nes connexes estl de manibre g6ndra1e, d.isproportionn6e avec }a demand.e effectlvel s&rs parler des besoins qui
comrnencent e se falre sentlr ou que lron ne pergoit encore que
confus6ment. 11 est significatlf de constatei, pour ne citer
qutun exempler elre 1e Prograrrme 61argi et Ie Fonds sp6cial ont
un arri6r6 consj-d6rable de d.emand.es dtassistance euir bien
qutelles soient consid6r6es comme parfaltement valab1es, nront
pu 6tre satisfaites pour d"es raisons financibres ou autres.
Ces deux dernibres ann6es, le Progrtrmrne dlargi a d0 r6duire ses.
al-locations e. un certain nombre de pays dtAsie, dtAmdrique
latine et d.u llloyen-Orient, q.ui en avaient pourtant grand. besoin,
pour octroyer quelque assistance, bien lnsuffisante, aux pays
dtAfrique qul accbdent e lrind6pendance et euir presque sans
exceptlon, cherchent avec inslstance une alde ext6rleur€.rf
6, Par Ia nature m€me des chosesz il ne saurait y avoir,
en raison du jeu complexe des innombrables facteurs en cause,
une m6thod.e pr6ci-se d.e mesurer Itefficacitd de lraction internationale; mais les conclusions du Comit6 cLes 6vaJ-uations selon
-4lesquelles 3-es organisations lnternationales sont devenues un
puissant facteur pour stimuler lfaction des gouvernements natlonaux ct les aider dans leurs efforts visant b am6liorer les
conditions 6eonomiques d b,releve r les nlveaux de vie (paragraplne J42), et selon lesquelles Ies organisatlons interrrationales
ont aid6 D. faire nattre ou b rend.re possible une action sur Ie
plan national euir ilu point d.e rme d.es d.6penses engag6es et des
efforts ac'eomplis ; est incomparablement sup6rleu.rre aux investissements faits par ces organisations (paragraphe 747\ traduisent
bien Itexp6rience acquise jusqu'ici. Eil outre, Ie Comitd des
6valuatlons reconnatt que 1es ressources financibres d.es Nations
Unies et cles institutior:s spdcialis6es ont touJours 6td fort
ljmit6es etr en d6pit d.raugmentations r6centesl sont encore d.rune
faibl-esse frappanter et que 1es bud.gets ainsi que les contributions volontairesr pris dans leur ensembler De 'repr6sentent quf un
petit pourcentage de ltaid.e internationale octroy6e sur une base
bilatdrale, en d.ehors du systbme des Natlons Unies (paragraphe 541).
des 6valuatlons considbre que la faiblesse
d.es ressourccs dont disposent les organisations internationales
et La confiance que les peuples et les gouvernements mettent
en e11es 1'eur imposent 1r obligation de soumettre lettrs programmes b. un contrdle constant, de chercher les points faibles de
1er.r action et de discuter tes mdthod.es b appliquer pour renforcer leurs prograJnmes dans 1es secteurs or) Ie progrbs a 6t6
plus lent qutbn aurait pu Le souhaiter (paragraphe 145).
7.
T,e Comit6
B. tre Comit6 des 6valuations reconnatt que le succbs
efforts des }Tations Unies et des institutions sp6cialisdes
d6pendra n6cessairement de ltappui qufelles regolventl dans 1es
organlsmes qul d6terminent leur politique gfn6ra1e, des repr6sentants des gouvernements (ainsi que des employeurs et d.es
travailleurs dans 1e cas d.e 1t0.I.T.). 11 souligne q.ue lrintensification d.e 1a coordination ne doit pas se faire au d6triment
de lfefficacit6 et qut1I pourrait trbs bien y avoir lieu de
simplifier certaines des proc6d.ures et des pratiques existantes
d.es
en matibre de coordination (paragraphe 555).
9. lrune cles conclusions essentielles du Comitd des
dvaluations est que le progrbs d6iA r6a1is6 par une coord.ination librement consentie est nettement eneollrageant (paragraphe 55A) et qutun esprlt d,e collaboration plus dtroite gagne.
Eu terriin, notamrrrent d.ans les nombreux et vastes domaines or)
ltaction commune ou concert6e prcndra de plus en plus Ia place
de programnes iso16s qui Sont Sans liaison avec les secteurs
pr:ncifaux de besoins et df action (paragraphe 570).
510. le Comlt6 d.es 6valuations exprine Itopinlon que lrun
plus grand.s d.angers cians la polltlque du d6veloppement 6conornique r6side ilans Ia tendance b. d.onner aux aspects nat6rlel-s
d.es
de la croissance une importance pr6pond6rante et d.lsproportionn6e.
Draprbs 1e paragraphe 90 d.u Rapport drensemble, t,il y a un risque
que 1es moyens fassent oublier Ia fin, que les droits d.e lfhorone
solent submerg6s et que les €tres humains soient eonsid.6r6s seLllenrent comme d.es lnstruments do proituctlon plutdt que eonme des
entit6s libresr &ti bien-6tre et aux progrbs culturels desquels
est destin6 lraccroissement cle cette prod.uction, I.la prise de
conscience de ce problbnre a une influence profonde sur Ia fornulation d.es objectifs de ddveloppenent dconomlque et sur les
m6thodes employdes pour les atteinri.re. Itl6me lorsqutil est reconnu
que le but de tout d6veloppement 6conomique est un objectlf social - ctest-}.-d.ire lt6panouissement et 1e bien-Otre ile ltindirrid.u d.ans une libert6 plus grande- i1 peut arriver quton enploie
des m6thod.es de ddvelopperaent qui sont 1a n6gatlon des droits
hrurains fonda:,nent auxrr .
Il-. Ila Commisslon d.es organisations inter::atlonales voudra
peut-Otre exaniner si e1Ie d.esire formulerr oll stade actuel, dee
observations g6n6ra1es sur Ie Rapport d.,ensenb1e. A cet 6gard,
les points suivants peuvent pr6senter un int6r8t particulier
3
a)
11 serait peut-8tre appropri6 d.fexprlmer 1a satisfaction de
la Commission quant b Ia manlbre dont 1e Rapport se confor:ne
aux accords conclus entre 1e Conseil 6conomlque et soclal
et le Consell d.railminlstration.
b)
Ira Conmisslon voud.ra peut-6tre noter 1a conclu.sion du
Comit6 des 6valuations selon laquel1e ltanrpleur d.e ltactlon
internatlonale reste, pour lrinstant, insuffisante par
rapport aux besoins actuels et futurs.
c)
I-,a Commission voudra peut-Otre stassocier b
du Comitd d.es dvaluations, dtaprbs 1aquelle
la conclusion
Ies progrbs
gr6ce
rdalis6s
ddjb
ir une collaboratlon llbrement consentie
sont netter:ent encourageants. I,e concept d.e rrfa^mille d.es
Nations Uniesrr acquLert constamnent plus d.e force, et il est
nalntenarrt essentiel qutil- puisse staffinner plus profonddment encore par un consentement mutuel et par un processus
naturel.
d)
la Conmlsslon vouilra peut-8tre Earquer son approbatlon d.e
ltattituile g6n6ra1e du Comit6 iies 6valuatlons, selon lequel
le d6veloppement 6conomique ntcst pas une fin en soi, mais
un noyen pour lt6panouissement de la.personnalit6 humaine
dans son ensenble, et q.ui estirne que Ie critbre d"e la valeur
6
d.e ce d6veloppement r6sidc dans 6es effets sur lrexlstence
de chaclue homme en particuller et d.ans Ie r61e qutiL peut
jouer pour favoriser la 1-ibert6 et Ia d1gnit6 d.e Ltbonne.
Relation entre Les concluslons du Comit6
ceffi
d.es
6valuations et
lr2, I,es eonclusions du Conit6 d.es 6valuations
semblent
particulibrenent oppor:tunes si lron tient conpte des discusslons
quj. ont actuellement lieu sur 1e plan lnternatlonal au sujet des
progrbs des pays en voie d.e ddveloppement et de lrintensification
de 1a eollahoration technique avec ces pays; iI serait peut-6tre
int6ressant dtinsj-sti:r sur certai-nes cles considdrations qui paraissent avoir un rapport avec il.es propositlons visant a 6tend.re
ltaction internationale pour combler lt6cart gui subsiste entre
J-a situatlon d.es pays les plus <16ve1oppds et celIe d.es pays en
voie d.e ddveloppement, suivant Ies pri:icipes envisag6s ilans Ie
Rapport d.rensemble.
e
at
c1u
r61e du m6cani
istance techni
e. des
L3, Itexpdrience du fonctionnement d.es programmes dtaide
internationale r6vb1e It lmportance qur attachent 1es gouvernenents b6n6ficiaires b ce que 1a part 1a plus large possible
de cette assistance soit accord.6c par lf interm6diaire drorganisatlons dont lls sont membres et dans lesquelles ils peuvent
faire entendre efficacement 1er-r voix lors d.e lt6laboration d.e
Ia politique g6ndra1e. Grtce b la repr6sentation des gouvernenents (et, en ce qui concerne 1r0.I.T., des employeurS et d.es
travailleurs) ,,, sein des organes reprdsentatifs C.es Nations
Unies et des-institutlons sp6cia1is6es, les pays b6ndficiaires
sont en mesure drinfluer sur lt6rg&nisatlon et la gestlon des
programmes dtaide technique entrepris sur leurs territoires par
b"s-organlsations et dty contribuer. En outree pour exdcuter
leurs prograrmes dtaide techniguee les Nations Unies et les
institutions spdcialis6es peuvent faire appel b des conseils
dtexperts sans se liniter b.un pays d.dterrnln6 ou h un groupe
d.e piys.; ec point pr6sente une i-nrportance consid6rable 6tant
donn6- les difficrrlt6s que lron 6prouve b recruter un personnel
hautement qualifi6 pour des acti+it6s teclrniques spdcialis6es
et
extrOmement d.i.verses.
autre part , lr administration d.e I t aid.e internationale
exige un ensembl-e 6tuai6 dtarrangements internationaux et natlonaux qui pulsse f onctiorurer efficacement et r compte tenu d'es
t&cheJ a effectuer, dconomique::nent. l)cs arrangenents de eette
nature ne peuvent 6tre irrprovis6s, alors que Itaide internationale se ddvelopoe sensiblenent, sens un risque ccnsid.6rable de
confusion, cle r6taras et d.e gaspillage. les Nations Ilnies et les
institutions sp6cialisdes ont mis sur piedr &tr cours d'es dix
clernibres a3n6es, une organisation ad.rninistrative pratique pour
L+
.
Dt
ltex6cution
d.e s prograrunes cltaicie technique. Cette organisation
peut encorc 6tre d.6ve1opp6c et aclapt6e, Ie cas 6ch6ant, b lt6volution. d.es cond,itions, comme le montre la cr6atlon rdcente Cu
tr'oncls sp6cial et Ie projet dtAssociai;1on internationsile d.e d6velonpement. Cepend.ant, Ie m6canisme actuel constitue un caclre
ct_ui permet une coordlnation des efforts et faeilite les consulta,tions et l-a collaboration entre institutions comrne i--r,vec les
gouvernenents bdndficiaires; en n6me temps, il est rr:std suffisarnr,rent souple et iI nrempibte pas sur 1es aspects techniques
des projets d.ont les organisations participantes sont responsables conjointeroent ou 1n'livlduellenent. En n6me temps, il impcrte
que l-e mdcanisrne de coordlne"tion et de gestion d"es prograanes
des ldations Unies soit v6yitabler*ent Eruffisant pour effeetuer
toute nouvelle tAche clutune augnentation substarrtielle de ltaide
lnternationale pouruait lui lnposer ct pour exa"roiner syst6matiquenent d.ans que1Ie r:Iesure Ies arrangenents actuel-s sont ad.6quats
et efficaces de ce point r1e vue.
15. le problbnre prdsenl;e Sgalenent un aspect plus large.
Itobjet innrdd.iat de ltaicle intern.ationale est d.e trfavoriser Ie
progrbs soclal- et instaurcr d-e meilleures contl.ltions de vie dans
une libert6 plus granderr, afin d.e favoriser trle progrbs 6cononlque et social de tous 1es peuplesrr. Cepcnd.ant, if est tout
aussi inportant que l-raide lnternationale soit adninlstr,ie de
nanibre h unlr p1ut6t qutA.clivlser 1.e monde e't qurelle contribue
a rrharuoniser les efforts des nationsrr afin d.e ttpr6server les
gdntlratlons futures ciu fldau de 1a guerreil,
16" Par consdquentr il sera. n6oessaire de consacrer une
attention soutenue b la question cles arrangenents les nieux
appropri6s pour assurer une 6troite coll-aboration entre les
Nations Unlesl 1r0.I.T. et 1es autres institutions sp6cialisdes,
ainsi qut avec d.e nouveaux u6canlsnes ou progranr:res c1t aid.e lnternationale qui pourralent Stre institu6s.
udgess llt-glsb@el Ie praLl-b:l-"j 1tdcheLle mondiale
l'1 , t'lne ai-rgi':entatlon narqu6e cle lralde internationale
aux pays en voie de cl"dveloppei.tent supposie que la croissance
6cononique dcs g::ands pays industrial.ls6s, auxquels cette alde
est der:anc16e, soit continue. La collaboration 6trnlte de ces
derniers pays errtre eux est d.oublenent inportante, car el1e
est une des conditlons du d6veloppeuent efficace de lralde envisag6e. Ell-e est ndcessaire pou-r l:alntenir les niveaux d1ev6s
de ltenploi et l-a stab1lit6 nondtaire q.ui sont indispensables
sl llon veut atteindre un taux erd6quat de crolssance continue
et disposer de ressources sufflsantes pour 61r:,rgir lraide
-Baccorddc; il est tout aussi ndcessaire d.tassurcr unc r6partition
6clultable du farde.t,u que repr6sente ltaide lntcrnationale.
p,iirrtalt, cette collaboration entre les grancls pays ind.ustrialis6s
ntcst, eii e1}e-udr:e, qurun 6lduent oe la tdche plus 6'tendue -qtr.i
coi:slstc b faciliter un ddveloppei:ent sain et contlnu cte lrdcoloi-:ie rlans le r:onde entier. tra- responsabllit6 de cette t6.che
ilconbe I la far:i]le des }iatlons Unies d.ans son ense,-:bleret
se ule ultc collabo::atlon eitroite et soutenue, ii 1aque11e se consacreront entibre;ient et 6galer:ent 1es grancls pays industrlalls6s
et 1es pays en voie de cl6veloppeuent', lui pen.tettra" de sren
acquitter a.vec effrcacitd. i,r 0.I.T. , tout ell ne cessant de
naintenir des relations atrproprides de collaboration i.:utuelle
avec tous Ies gouverne;.:ents et les organlsati.ons lntergouvertleEeni-ntertales susceptlbles de ccrrtribner $, ltextcnsion de l-taide
d"c
SeS
ltune
Cor-lul€
consid6rer
nationale, doit n6cessairei-:e::t
en
ltattentionr
responsabllit6s prir.:ordia,l-es Ce concentrer
colla.boration avec l-es lila.tions Unlcs et 1es autres iirstitutions
spt5cialis6es, sur la n6ccssitd dtabord.er le problbr,re b. 1t6chc11e
r.l-ond.ial-e. Ii faut, dairs cette t0ctre, tenir coi:pte aussi bien
rlcs responsabilit6s et c1e la capacit6 -dtaide cles pays avanc6s
que cles besoins dcs pays en voie de d,6vclopperient_, en vue df atteindre dans lrintdr6t de tous, grdce ir, une collabcration
iiutuelle et ir un accord. g6ndra1, le tarrx 1e p-Ius 61ev6 posslble
dc croissance continue.
[dgeSsij-6jrattglentil-]e!l-g!-p!ur-9-9-q.
1iJ. I,e problbue de lrassistance a,ux territoires qui
abandonnent f.A statut de territoire 'sous tutelle c't aux ]itats
qrri accbclent b lrind.dpcndance constitue un aspect particuller
sp 6c ialei:e nt urgent du prcblb;.:e pluq g{ndraJ- d e . lr cxtenslon
"t
dc l-taide lnternationerle. I,e Conseil- 6c'onciiiqr-ie et social de s
ITations Unies a exallnd cette questlon et, dans u:re rdsol-ution
adr:ptele 1e A5 avr11 1950, a e:11:riud ltopinlon que des cfforts
pariiculiers devaient 6tle faits pollr alder l-es nouveau.x Etats
lnddpenclants dtAfrlquc ct c1railleurs, en leur accordant san$
retaid i-rne assistance efficace cla:rs le cadre des llrogral-jiles
existants des li'ations TJnics et par ltinter:.:dd-1aire d.es institutions spdclalisdcs.
Des uesures p:;Lrticul.ilres peuvent 6tre nticessaires
pour r$soudrc dtu.rgencc certa.lns <ies problbi-ics que rencontrent
ies Etats qrri accbdent h, ltind,dpendance; i-:a:'-s 11_faut noter avant
tout quti} sera indispensable dtauguenter scnsible::ent'le voluue
total- de Itaide internationale quc dispeuseirt les insti.tutions
de la fai.:ille des Natiorrs Unies sl Iron veut satisfaire les
besoiirs des ilouveaux Etats tout en uaiatenant les prograljiies en
19.
-9
t
cours clans drar',.trcs r6gions et en les dtend.ant ralsonnabl-ei.:ent.
ce poin.t, 1e Conseil 6conoi:1que et soclal a expriu6 ltespoir
eucr gonforu6uent aux r6solutions dg ltAsseirbl6e gdn6rale l3B2
(xrv)I, paragraphe 5, et l3B3 (xrv)2, paragraphe 5 n), dcs fonds
srrppldnentaires seraient i-tj-s L 1a disposltion clu ?rogra;ue
Jlargi dtasslstance technlque ct d.u Fonds spdcialr cil 1961 et
au cours d.es anndes suivantes, pour pemettre draccroitrc sensiblei:rent les activit6s de ccs progrannes en Afrique b, l-a
dei.iande Ces anclens territoires sous tutelle et clr ilutres ,'Jtats
ayant accdd6 r6ceuuent ir lrind6pendance, tout en i:aintenant
pleincrent, ou u6ue en augi.rentantrltassistance accord6e b d.rautrcs rdgions au titre de ces r)rograirnes" 11 cst clair qutb.
d6faut drune augnentation notable c1u total des ressourees
disponibles, l-t0.I.T.1 coi.rre -boutes les au'bres organisations
participant au Progre.i.r:)e dlargi, sclra olac6e face b un cholx i
el-.Le devrar ou bien clJcevoir lcs espoirs croissants des pays
africainsr ou bien r:6drrlre sirieuscuent 1cs plrogrliiiles qui
rdpondent b des besoins tout aussi urgents d.ans dt autres r6gions
du i.:oncle . A l-rheure; actueller ni les ressources du Prograuile
61argi d.tassistance techniquc nl celles du Fond.s sp6cial ntauglentent autonatiqueuent avcc le noi:bre d.es n&:i,:bres des I'l'a.tions
Unles, dc lrOrganisation j.nte r'nationale du Travail ct des autres
Sr-rr
institr.rtions
sp6c
ialisdes.
20. I,a Coir:lsslon ne d6slrera peut-6tre pas fon.luler,
lrlnstant , d t observati-ons d6flnltives sur ces divcrses
questions, dont certalncs exigeront peut-6tre un exanen, b un
stade approprid, par la Cou;rission d.e lrassistance technique
ctI par la Coluission budg6tairc ct adi:lnlstrative c1u Conseil
cl adi-:inistratlon; tor.rtefols, e1.le csti'uera pcut-6tre utile
d,rattirer lrattentlon du Conseil dtaduinj-stration sur lriuportazrce qiri sf attache b ce que ccs consid6ra.tions nc soient
jai:ais perdues de vue.
poul"
Genbve, 20 i-:al 1950.
*I ^.
R.6solution concernant la situation et les opdratj-ons
Fond.s sp6cla1.
2 ^,
}(eso ].ut1cn
technlque.
conc
e
rnant 1e ?rograr:i-.re 6i-argl
d"
I
clu
assi- stance
i
I
t
Ilstr.
UN]TED NATIONS
ECONOMIC
GENERAI
ANI SOCIAI
couN0rt
E/3347
5 May L960
0RIGIIIAI: English
Thirtleth
Session
Agenda iterr
5 (")
GENEL,\I REV.tilIf 0-T 'II{E }E\IEI0PHINT ii}TD CO-ORDINATION 0F
ThE E00N0MIC, SOCIAI, :iliTD l{ii'l'riAN ITIGHTS PROGRAI\0dES AND
i.CTIVITIES 0F Tilli IliilI!"'EI i[ti?I0l{li AND T}m SPECIAIIZED
l.Gl,ili0Ilis ris A
l,/HOL,lE
.i\ppralsal of the Scope. Trend and Costs of the
sed
Egggamu,es qf th-ejI, i
&gerSies ?nd. thql.4..E 1' . in the:Ec9no.mi-c.
and liumgB_ Bishte_F:Le !19
q*gc.=igt
CONSOLIDATED RiiPORT
Submitted by
in Pursuance
50-1r_012
the Cornm'i ttee on Prograr,trne Appralsal-s
of Council R.esolution 694 D (XXru) of
1L Jttl-y 19 58
12 April 1960
Mr. President,
Y',Ie have the honour to subr,rlt herewlth the Consolidated.
Report of the Councilrs Commit-'cee on Programme Appraisals,
prepared for the Councll-ts consideration in aecordance with
the directives set out in Oouncil resol-ution 694 D(XXVI). Ihe
Committee d.eslgnated one of its members, Ivlr. \:Yalter M. Kotschnig
to act as Rapporteur and to prepare the draft on whi-ch this
flnal report 1s based. Staff asslstance from the United
Nations secretariat was provldecl by the Secretary-General as
Chairrnan of the Admi-nistrative Commlttee on Co-ordilati-on.
In accordance with Cor:.ncii resol-utlons 665 C(iXfV),
694 D(xx\rl) and 743 D(xxvrrl) r the secretary-General of the
United Nations r &s weLl as the executive head.s of the
Inter-rrational- labour Orgarnisatl,;n, the Food and Agriculture
Organization, the United Natioris Educational, Scientific
and. Cultural Organtzation, the Yforld Health Organ:-zation,
the Y{orl-d Meteorological Organt:,zation and the In-ternationalAtonic Energy Agency have submltted their sepa::ate appralsals
of the scope, trends and costs of the programrles of their
respective organlsations in the economlc, soclal and human
rights f ields for the period 1959-64. :\s requestecl, the
area covered by these appral-sals has lncluded progranmes
undertaken
wlthin the frar.,ieworlc of the
expanded programme
Special Fund as well as
of technlcal assistance and the
regular prograames. These separate appraisals, together
with the Consolidated Report itself ,'are being transr::ltted
to the Councll through the Administrative Committee on
Co-ordination for any comments that Comnlttee niay wish to
offer for the Councll I s consideration at 1ts thlrtieth
se
ssion.
In its resolutlon 694 D(,Ui\rI) tn.e Councll ctirected the
Conrnittee on ,\ppraisa1s rrto colia,te the separate appralsals
and, on the basis of these appreilsals, to prepare a consolldated report showlng the extent to r,vhich the programmes
covered respond to basic needs and also the inter-relatlon
of the actlvitles of the United Nations and the speciallsed
agencies deslgned to meet these need.s.rr The Consolidated
Report which is here subnltted incl-udes a chapter (Part II)
in which vre have endea.vourecl to collate the separate
appraisals on the basls lndlcated.
His Excelleney Mr. C.\V.F. Schurmann,
President, Economic and Soclal CounciJ-,
United Nations,
NEIII YORK I N.Y.
-2
appreciative of the eo-operation that has been
us in the preparation of this report by the
United Nations and the agencies participating in the appraisals.
In completing the task assigned to us we express the hope
that in some neasure at leastrrathe report, 11ke the appralsals
step in the dynariiic- process
themselves, may prove to be
of deve.Loping progressively the effectiveness of the United
Nations ana tne specialised agencies as instruments for
assistiyrg the couirtries of the worlcl to develop economlcally
and sociatly a.t a great.Ly accelerated rate.rr
lVe are
extend.ed to
Respectfully submi'tted,
(
sigrred)
( siened)
George F. Davldsc,n
(Signed) Walter ir[. Kotschnig
George F. Davidso:r.
Chairnan
Walter Ivl. Kotschnig
Rapporteur
Daniel Cosio Villegas
( signed) Mohanmed
nani-el- Cosio
Meinber
(
Villegas
siened
)
iiiohanned I'tIlr Khan
Member
Sergij e Makiedo
Sergl j e iVlakiedo
Memb"er
Ivlir Khan
2
Table of Contents
?aTagraphs
TNTROIUCTTON
....
o
o..
o
o
.. o..
.......
Need.s, Problems and 0pportunlt j-es . . . . . . .
Part I.
A. A Study in Contrasts .,...orooo.o..o.
B. Population and Prod.uction . . . . ...... .
C. Needs of the Iress Developed Countrles
l). Concerns of the Developed Countries..
E.
F.
Part II.
Hunan
Rights
c,nd
Non-I{aterial Va}ues.
for International Aetlon.
Opportunlties and limitations . . . . . . .
The Cal--l-
Progranme Trends
,
L959-Lg64
............
resource
7
)o
Agricultural p::oduction, inc1ud1ng forestry and fishlng . ......
lndustria,l- growth .....,.. o......
4.
Transport and. cornreunlcations . . r.
5.
International trade and commodi-ty
n
problems .....
o...
oo
c....
t1o t45 t+5 l-25
A. Statlstics, Surveys and Research .. o.
B. Economic Development and Co-operation
1. Resources d.evel-oprrrent . . . . . . . . . . .
(a) Natural resources , includi.ng
erlerSy resources ...........
(b) Manpower as an econo!'ric
Z.
t-2L
22 - l'23
22-3t
32 38
39 76
77-84
85 91
92 - L24
e
"......:
Social Development ..... . .. ...... .. ..
1. Populatlon ......................
2. Houslng, builcling and physicalplannlng ..............o.........
3. Health .........................r
4. Nutri-tlon ..r..........o.........
r..
5. Education . r.................,
6. General- conditions of work and
employment ..........
o r..........
'l . Socia]- security .................
8. Soclal services and soclal defenee
9, Narcotios oiooo.r................
]-0. Refugees ........................
308
t45
2A4
t67
t46 -- 158
L59
-
l-BZ
189
168
J-67
181
188
L92
L91 _ zo+
206 210 2j.5 272 217 252 254 258 265 270 205
27e
209
2L4
21t
230
25L
251
257
26+
269
276
4ParaEraphs
D.
Broad Programmes of Socio-Econonic
Development .....o.......
o...............r
277 283
28+ - 287
E.
288
F.
- 297
G.
298 - 3O5
H.
?06 - 308
709 745
?art III. Major Shifts i:r Emphasls ........... o......
213 347
A. Fron Proteetion to Developrent . r.........
...
.
.
7t+ - 1t7
B. Standards and Operatlons . ... e.. ....
o.... 3L8 - 3L9
C.
Decentralisation ro.i................
o..... 32A 322
D; Shifts in Tra,inlng .o...............
E. Institutiona] Development and Administrat. o
a a.. a. a....
tion
. a. .. .....
527 326
a. a.........
F. Towards Bal-anced Econonlc ancl Social
327 - 130
Development .......oo.!..!................
New Departlrres in Statisties, Surveys
G.
t... ... I 31t 575
and Resear0h .... .. .... r..........
and
Programming:
on
Pl-anning
H. Emphasis
o.. 316 14t
national and regional ..o...,..........
I. Emerging Concern with International
Econonic and Social- Policies t,... o... . ... 7+2 - 345
Public Administratlon .r..................
Fi::ancing Economic and Soc j-al Programnes. .
Human Rights, lncluding Freedom of
Informatlon ...r. r........................
Cultural Herltage and l,tlutual Appreciation
of. Cultural VaIueS .......................
o
e
o
Part IV. Inereasing the Effectiveness of International
Actlon
...........at.ta'
a'."
" "t
"
t"'
t' t"'
A. Relatlon of Programnes to }treeds ..........
B. Speclal Probleil Areas .. o. r.... ' .. ... r o . . .
C. Concentration of Efforts arrd Co-ordination
1. Streamllning .............
, Problesrs of Co-clrd ination
2
c.
o
..
.
aaaa
aaaaa
D. Budgetary lssues and Growth Potential ....
1. Budgetary frends ............o........
2. Manpower lriternertionally Available . . .
Epilogue
.. ....
... a.. .. . r...
....
. . . . t. a.. . I . ....
I t a....
346 772
3+6 149
150 - 15l752 369
552 - 355
356 - 169
77o - 172
370 37t
372
773
-
377
5list
of /rbbreviations
Used.
F.A.0.
for Africa
Economic ConnissiorL for Asia and the Far East
Ecclnomic Conmisslon for Europe
Economic Commission for latin Aneriea
Expanded Programme of Technical Assistance
Food arrd Agricultrire )rgantzation of the United Natj-ons
I.A.E,r\.
Internertional ittor.ric Energy Agency
r.B.R.I.
r.c.A.0.
Interneitlonal Bank for Reconstructj.on and Developnent
Economic Comralssion
E.C.-A".
E .C .A. F.E .
E.C.E.
E.C.l..h.
E.P.T.A.
International Civil Avlation }rgantzation
I.C.C.I.C.A .fnterln Co-ordinating Committee for Internatj-ona1
lty Arran.genent s
r. c. r.r .o/ Interin Comnj-ssion for the International Trade OrganiG..L.T.T.
zattoni}enera.l .i\gr:eeiaent on Iarlffs and Trade
Comsrod
r.tr.0.
lnternational Finance Corporation
Irrternatlonal Labour Or:ganisation
I.M.C.0.
Inter-Governmental- Ll[aritime Consu]tative Organization
I
fnternatlonal l.{onetary tr'trnd
I .F. C.
.M. F.
0.P.E.X.
Experinental Prograi:iiae for th.e Provision of Operati-onal
and Exeoutive Personnel
U.T.U.
Universal Postai Unlon
I . T.U.
International Telecomnunlcations
U.N.
Unlted Natj-ons Organizatlon
U.N.E.S.C.O United Natlcns Educational,
Organizatlon
U.N.H.C.R.
Union
Scj-entlfic and CulturaJ
Office of the United Nations High Cor,rmissloner for
Refugees
U.N,
I . C.E.F United Nations Chlldrenrs
U.N. R.W.i\
.H.0
lil.M.0
IllI
.
.
.
Fund
United Na.tions Relief and Slorks i\gency for
Palestj.:re Refu-gees in the Near East
Yforld Hea]-th Orgenization
Il{orld Meteorological Organlzatlon
-6
INTRODUCTION
1. An outstanding characterlstlc of the United Nations and.
the agencles assoclated with it is the broad scope of their
The United Nations ltself was assigned a fourfolcl
actlvlties.
task. It was conceived in the first lnstance as a security
organisation; provided with a multitude of means and procedures
to permit the peaceful settlement of lnternational disputes, and
enabled to meet breaches of the peace with collective force if
necessary. It rvas designecl to develop friend.ly relations among
nations based. on respect for the principle of equal rights and.
self-d.etermination of peoples. ft was to aehieve international
co-operation 1n solvlng lnternational problems of an economlc,
social, cultural and humanj-tarian draracter and in promoting
fundamental human rights.
Flnallyr 1t was to be a centre for
harmonising the actlons of natlons in the attalnment of these
common ends. [he speciallsed agencles 1n turn were glven wld.e
international- responsibilities in eeonomic, social, culturaI,
educational, health and related fiel-ds.
2.
fn thelr emphasis on economlc and social co-operatlon,
the found.ers of the United Nations went substantially beyond. 1ega1
precedents set 1n the Covenant of the league of Nations.
Article 27 of the Covenant - the only article dealing with
co-operation in the economic and social fleld - ca11ed for
endeavours by member States llto secure and maintain falr and.
humane condltlons of labour for men, wonen and childrenll; for
supervision by the league of the execution of agreements flwith
regard to the trafflc in women and children, and the traffic 1n
opium and other clangerous drugslr; and for steps lrin matters of
international concern for the preventlon and control of diseaserr,
The authors of the Covenant were evld.entl-y more preoccupled with
soclal and humanitarlan issues than wlth economic problems. AII
that is found on the economlc sid.e is an und.ertaking to rrmake
provision to secure and maintain freed.om of communicatlons and of
transit and. equitable treatment for the commerce of all members
of the leaguell .
Notwlthstandlng these constitutional- limitatlons, the
3.
league of ldatlons over the years paid increaslng attention to
economic and flnancial problerns and developed a number of looselyorganised standing commlttees ln these areas. fts Secretarlat
produced, a series of outstanding perioclica,l publications and
monographs and lald the found,ations for the type of lnterr:ational
fact-finding and research that has become one of the major
actj-vlties of the Unlted Nations and related, lnter-governnental
organlsatj-ons,
-7
4. Meanwhile, the International labour Organisati-on - whlch
was formed at the same tlme as the league and which reafflrmed its
purposes in the Philadelphia Declaration of 1944 - set the .example
for the establishment, after the Second World !Var, of the other
major Uplted Natlons organisations operating in speciallsed.
flelds.r
5. A special significance was attached to efforts by the
United Natlons and. 1ts relatecl organisations to promote economic
and" soclal co-operation, first of all because of the convlctlon
that such co-operatlon was important for the malntenance of peace.
Article 55 of the Charter elearly makes the point when it speaks
of rtthe creatlon of coniLltions of stabllity and well-b.eing which
are necessary for peaeeful and friendly relati-ons among natlonsrl .
Similar statements appear in the basic instruments of other
United Nations organisations. Second, following the war, there
was a new sense of urgency, of need for posltlve joint actlon to
meet the economlc and. soclal problems of the time - at a period
of history when the world was seen to be rapidly growlng more
interd.ependent and the polici-es of individual natlons could
deeply affect the common good.. Flnallyr there was recognitlon
of a rational need, ln building anew after the war, to replace
the earller fragmented international approaches to economic and
soclal problems with a more comprehenslve and coherent approach.
6. Since the end of the Second, World ,ilar, one further
element has been of paramount lmportance. It ls the concentration
of world attention on the needs ancl problems of the less developed.
reglons comprislng more than two-thirds of the global population.
These are the reglons of most rapld population growth. A large
p.roportlon of thelr people live at bare survlval levels and.
hunger, dlsease and early cleath are ever-present d.angers,
7. The tlme of fatallstlc acceptance of such condltions
on the part of the people is largely past. ft has been swept
aylay by the rrrevolution of rlslng expectationsrt, of which so much
has been sald 1n recent years - a revolution born of the poverty
- Throughout thls report, the teru trTJnited. Natlonsrr is
applled" exclusively to the organlsation established by the United
Nations Charter. Such terms as ftUnlted i'tratlons organlsationsrr;
rrorganisations wlthln the framework of the Unlted. Natiohsrrr or
ItUnited Natj-ons familyrr 1nc1ude, in acldition, the autonomous
lnter-governmental organisations that are related to the United.
1
Nations by formal agreements as specialised agencles, plus the
International Atomic Inergy Agency.
-Bmisery of these peoplesl and thelr growing realisatlon that
in thls sclentlfic age they need. not be poor and mj-serable.
Und.er the impact of thelr contacts wlth more highly d"eveloped
countrles and the growing effectiveness of mass media of infonnatlou and propaganda, fatalism ls giving way to riestivenessr and.
reslgnation to expectation and demand.
and.
8. filthln these regions there are many countrles that have
only recently gained their indepencLence or are about to emerge
as lndepend.ent States. Close to 900 mill-ion people have f ound
national independence slnce 1918, most of them since the end of
the Second lrVorld Yar. The process which began jl the 1\[ld.dle East
and in Asia 1s now repeating ltself at an aecelerated rate in
Afriea. One of the flrst official acts of any of these newly
created States 1s usually to seek admission to the United Nations.
Once its flag is ralsed in front of the United Natlons building in
York, its representatives add their voi.ces to those d.emancllng
that speclal attention be given to the economlc and. soclal. needs
of the less d.eveloped countries. As the membership of the United
Nations grew from 50 in L945 to 82 ln 1959, increasir€ priority
was glven to the programmes for d.eveloplng the less d.eveloped.
countries. As a m1e, the numerous resolutlons af fimlng and
reaffi:mlng this overricling prlorlty were voted unanimouslXr
reflecting both the gooct sense and the good-wiII- of the more
highly developed. member States
9. The actual growth of international economj-c and. soclal.
programmes and. actlvities during the l.ast'fifteen years has been
remarkabl-e. The Economic and Social Council, acting und.er the
authority of the General Assembly and ln accordance with the
Charter, has surround.ed. itself with functional' commissions dealing
with such subjects as statistics, population, soclal questions,
hwoan rights and the status of vuomen; also wlth problems of
lnternatlonal trad.e and. with the traffic in r:.zrcotics. ft has
created four reglonal. economic commlssions, for Europe, latin
America, Asia and the Far Iast, and Africa. These in turn have
set up numerous subordinate committees, expert groups and worklng
partles. Major operatlng bodies have been established; Sueh as
U.N,f .C.E.F., the Office of the High Commissioner for Refugees and
comrnittees and bodies responslble for the planning and operation
of the trxpand"ed. Programme of Technlcal Assistance and the new
Special Fund., whlch is'the latest effort of the United Nations to
promote economic and soclal development. These bodi€s'operate in
over a hund.red countrles and terrltories.
New
-9
10. The trumber of speciallsed agencies related to the
United Natlons and to each other by speeial agreements and
und-ers-tandlngs has been lncreased. and at present there are
trvel-ve* The fnternational Atomic Energy Ageney ( I.A.E .A. ) ,
newly createcL under the aegis of the United Nations, has also
established close ties wlth the other agencies. Budgetary
flgures given in the body of thls report for some of these a"gencles
are an ind.icatlon of the steady and,, in many cases, rapid. growth
of their scoBe and actj-vitj-es.
11.
This remarkabile expansloh of economlc and soci.al
*
list of speeialised agencies ls as follows;
co-operation within the franework of the Unlted Nations has not
followed any preconceived p1an. As a matter of fact, there were
few, if ilXr among the founders of the United. Nations who
anticipated such growth.. Questions are now belng ralsed about
the future. Some ask f or further speeily expansion while others
look toward a period of consolidation. There are complaints
about a1leged. overlaps 1n activities and waste of resources and
manpowerr &s well as doubts about the effectlveness of some of
the activities that are und.ertaken, Many Governments find lt
difflcult to provid.e ad.equate representatlon at the hundred-s of
conferences, sessions and meetlngs held every year, and. some
have encountered. financial difficultles in making thelr
contributlons. .A. point appears to have been reached. where only
a few observers, at best, have been able to keep up with
developments and to rnalntain a reasonably clear understandlng of
all that 1s being done. Even among them there 1s disagreement
as to whether the early fragmentation of policles, programmes
and. projects ls ylelding to a sufflclently co-ordinated. arrd
eoherent approach.
1
The
fnternational labour Organisation
f il,O.
tr'.A.0. - tr'ood and Agriculture Organlzatlon of the Unitecl
Natlons
U.N.E .S .C .0. - United Nations Educational, Sclentific and
Cultural 0rganizatlon.
v'I.H.0.
lYorl.d Health Organlzatlon
International Bank for Reconstrrrctlon and
I.B.R.D.
Development
f.F.C . - International Finanee Corporatlon
I.M.F. - International Ulonetary Fund.
I.C iA.0.
Internatlonal Civil Aviation Organization
U.?.U; - Universal Postal
r.T.u. - fnternational [elecommunicati-on Union
Yforld Meteorological Organization
r.M.c.0. fntergovernmental Maritime Consultative
Organi zat,ion
vy.M.0.
-10L2. Meanrrhile, Governments and legislatures are aslced.
from year to year to provide additional fund.s and to approve
the creatj-on of new lnternational organisations and machinery.
Some of them ar:e becomlng restive, and there are signs of
resistance to vrhat they may conslder an unlimited and d.isorderly
grovrth.
17, It v,,as in response to questlons of this nature that
the idea of a comprehenslve appraisal of the actlvities of the
United Natlons and speeiali-sed agencles in the economlc, social
and human rights fields took shape. First suggested in 1-957
by the Advisory Committee on Admlnistrative and Budgetary
Questj-ons of the Unlted Natlons, lt was recommended for aetj-on
to the Economic and Soeial Council by the General Assembly in
resolution 1094 (Xf), The Council, responsible for over-al1
co-ordination questions, &t its summer session tn 1957
unanimously approved such an appraisal- 1n the belief that it
would contribute to the effectivene.ss of the Unlted }Tations and.
the speclallsed agencles and. would help Governments in formulating
poli.cies toward,s these organisatlons. It requested the
Secretary-General to make an appraisal- of the scope, trend and
costs of regular Unlted Natlons programmes in the economicr social
and human rights fields for the perlod 1959-1964, and invlted the
I.1.0.1 F.A.0.1 U.N,E.S.C.0.7 Ii'/.H.O.r anil nY.l[.0. tO llCOnSidef the
most appropriate and. practical- method.s of preparing slmilar
appraisals of their own progrermmes for the same perlodtr. In
vj-ew of the importance of the peaceflrl uses of atomlc energy
1n such fiel-ds as health, agriculture and inti.ustry, the I.A.E .A.
was added. in 1959 to the organisatlons partleipating in the
appraisal.l The Council also envisaged, for later d.ecislon, the
preparatlon of a consoliclated report wlth concluslons on the
survey of activities and the flve-year forecast of the trend. of
programmes and expenditures.
1 Th" omisslon frora the E.C.O.S.O.C. resolution that called
for the programme appraisals of a.ny reference to the speclalised"
agencies in the fleld of flnance f .B.]1.D.r I.F.C. &hd. f .l{.F. 1s explalned primarlJ-y by the fact that these institutlons do not
the sense in vuhlch this word is used in the
resolution, and, in part, by the faet that they are flnanced out
of their own operatlons and rrot by w ay of assessed. budgets.
Other organlsations, i.e.e the f .C.A.0., f .T.U. and. U.?.U. &r€
largely rrregulatoryrr or administratlve 1n character and for that
reason were not includ.ed. in the survey. Vlhil-e these omissions can
be explai-ned on a variety of ground.s, 1t goes wlthout sa)rlng that
as a result the present report is less comprehensive than it
usefully might be. This rv1II become partlcularly evldent in the
sectlons dealing rry1th the need for external flnanclng of the
economlc and, socibl development of the eeonomically less
have programmes ln
develope cl cou.ntries .
-11 14. At its 26th sesslon, 1n the sunmer of 1958, the
Council-, acting with the advice of the special-lsed agencies
cotlcerned and of the i\dmlnistratlve Committee on Co-ord.inationt
further clarified' the unclertaking' By resol-ution 694 D(xxvr)
it lndicated that the a1'rpraisals shouLd' enphasise the over-alI
developraent, general directlon a.nd trend of progranrrles, rbther
than attenpt to define individual programrnes and projects;
and that they should j-neIude, in addition to the regular
programries, prograf,Ines undertaken within the framework of
the-Expanded- Technical irssistance Prograurne and the new Special
Fund. A Co;rmittee was establishedr to coll-ate the separate
appraisal-s arrd on that basis to prepare a conso1ldated report
showing the extent to whlch the progranmes responded to baslc
needs, amd also the lnter-rel-atiotrs of the activitles of the
participating organisations ln meeting these needs.
l-5. [he scope, nature and intent of the appraisals
are set forth nost clearly in a series of observations fonnulated
at that poiat by the Council:
appraisals are regarded. as a step in the
"(a) fheprocess
' dynamic
of developing progresslvely the
effectiveness of the United Nations and' the
specialized agencies es jrlstrrnents for assisting
the cor.mtries of the vrorld to develop econonj-calIy
and socially at a greatly accelerated rate.
tt(b) fhe appralsals are a further step in the
developnent of co-ordlna.tion through which the
' respective programnes of the llnited Nations
organ.izations have galnedr over the years, in- purpose,
Aepttr a.nd strength. Sirch co-ordi-rtation has been
achievecl not by vray of centralir.a"tion, not by
clirectlves or orders, burt by consultation and persuaslon
and by free co-operatj-on in the efforts designed to
lmprove the l-ot of men.
The appraisals are not to be unclcrstood as
"(c)
inplylng thit the progrannes ancl budge'bs of theunited Nations or the speclaliaed agencies shou1d,,
or could, be deterninecl outside the constitutional
franework of each organlzation. they inply no
the
. attenp'b to lnterfere with the autonomy offar,rily.
or.garLr,zt)tions within the United }tratlons
l-
Daniel
of George F. Daviclson (Canada);pafcistan)
(
(lliexico)
Mohainmecl l/li-r Khan
Cosio Villcgas
;
Conposed
Yfalter IVi. Kotschnig (U.S .,\. ) ;
(Yugoslavia).
and Sergije }{akiedo
;
t2
do not requlre firm policy
"(d) The appraisalsahead
fo:: the five-year period,
formulation looking
in
or any rigid. commitment regard to specific programmes. The apprai-sals should in no way interfere
with the flexibility which the organLzations must
have in determlning their programmes from year to
year.
that the cost of programmes
"(e) It 1s recognized
for the coming five years cannot be precisely determined.. What is desired is rough estimates, reached
by applying the cost factors known from experience to
the new and continuing parts of the programmes. Such
estimates cannot, of course, cover progralnmes which
cannot reasonably be foreseen at the time the appraisal
is made.
t'(f) It is hoped that the consolidated report, drawn
up on the basls of the individual- appraisals undertaken
by the United Nations and the specialized. agencies concerned, wil1, for the first time, give the Governnents
and. the peoples of the wor1d. a clear idea of what is
being achieved and atternpted through international
action. It should. bring into focus the interrelati-onship between the worlc of the d.ifferent organizatj-ons and thereby facilitate evejr closer cg-operation
and, wherever feasible, concerted aetion."r
16. In keeplng with these directives and injunctions the
present consolidateil reporb has been prepared . It is submj-tted
together with the separate appraisals of the pertinent
activlties and programmes of the United Nations, I.L.0., F.A.0.,
U.N.8.S.C.0., W.H.0., W.M.0. and I.A.E.A. The latter have been
furnished by the organisations themselves and represent the most
up-to-date evaluation of their current and emerging programmes
and activities.
l7 . The consoh-daterL report attempts a synthesis rather
than a summary of the sepa:rate appraisals and forecasts. Part I
begins with a broad. statenent of baeic econoraic and. social
needs and problems, present and emerging, which confront the
contemporayy world.. From this starting point it proceed.s to a
consideration of the demands mad.c upon international organlsations
to help to meet these need.s and problems. It discusses the
speclal and frequently unique eontributions whlch they can make,
as we]I as the limitations i-mposecl upon them.
I* Council resolution 694 (XXVf), annex, para. 14.
t7
18. Part II is an attempt to outline the scope and
trends in the development of programmes and activities of the
d.ifferent organisations, drawing upon the statements set forth
in the separate appralsals. fhe wealth of detall contained in
several of the separate appraisals defies summari-sation. For
tirj-s reason, and in keeping with the expressed wishes of the
Economic and. Soelal Council, this part of the report, by
necessity, concentrates on major programme d.evelopments.
Special attention is given to the inte-relationship of 'ooli.cies
and progranmes.
Part III looks at the programmes comprehensively and
at''cempts to highlight some of the general changes that are
taking plaee in the direction of international action in the
fhere are shifts in
economie, soci-al and human rights field.
of
agencies.
emphasis that seem eommon to a number
20, Part IV makes certain observations on the relations
between programmes and needs, and. deals with general questionsof co-ordination, priorities anil br"rdget. Questions are raised
Iilays and means are explored of
that require clarification.
improving processes of consultation and joint action, F,i.nally,
part IV oflers tentative flnancia] estj-mates indicating the
magnitude of i-ncreases in budgetary requirements that may be
anticipated.. The growth potential of the organi-satj-ons is also
dealt wittr from other angles, such as the question of tralned
manpower available to them for employment.
2L. Throughout the d.rafting of the consolidated report an
effort has been made to keep as closely as possible to the
informatj-on and the ldeas contained. in the separate appralsals.
The drafters of the report wou1d., however, have failed in their
mandate had they not stated certaln conclusions drawn not from
the ind.ividual Lppraisals but reveal-ed in the broader perspective
of an over-all review.
19.
14
PART
I -
NEENS, PROBIEIVIS AND OPPORTUNITIES
A.
A STU}Y ]N
CONTRASTS
22. Two major and seemlngl)/ con'tradictory trends in modern
world history have estahlished the need and opportunit;l for
international ac-bi.on in the economic and soci.al fle1d. 0n the
one hand, corrntries harre been brought much cl-oser together and
made more interdependent. 0n the other hand, in respeet of the
materia1 conditions of 1ife, the differences betvreen eountrles
have widened, corapared wlth what they were in the early nineteenth
century.
21. The economic and soclal pictlrre of the present world ls
one of extreme contrasts. In sorie areas food production has
reached a polnt where one-fifth or one-tenth of the labour force
can supply the total populatj-on, and rnay evell create a large unmanageable surplus. Indus"bry consuines steel at a rate of a
quarter-ton or half-ton or rnore per ini:.abitant each year. The
technology of transportation is so advanced that men are already
preparing to fly into outer space and return. The expectation
of l1fe has been raised to rrrore than seventl, years.
24, fn other parts of this sarne world, incluriing large
reglons of Africa and Asia and parts of la.tin Ailerj-ca, the technology of food production is at a level- Iitt1e hlgher than it was
1n anci.ent clvilisatlons of l.{esopotania and Egyot; two-thirds
or more of the labour force is en51a.ged in agriculture, but the
population is not adequately ferl. Steel and mechanical energy
are l-ittle used. Transpcrtatlon is so p::imltlve that farmers
are urrable to reach nearby markcts. In manlr of these areas, life
expectation 1s still less than thirty-five years.
25, Even within the same countries, sharp contra.sts w111 be
found. A sruall higirhr modernised sector, with up-to-date equipment, conteliporary archltecture, universitles, hospital-s, television, automobiles and aeroplane service, cften co-exists wlth
a vast under-developed sector of traditional. poverty. At the same
tlme certain modern elements have penetrated to many of the most
backward rural conmunities. These tend to be consumption elements.
ii{odernlsation 1n the form of productlon techniques in agriculture
and industry has penetrated. much nore sIorrl-rr. One result ls an
increasing pressure of denarid for modern consumer goocls witl:out
a correspondlng increase in capaclty to proclu.ce the:n.
_1526. The growth of moclern science and technology - s largely
responslble both for brlnglng nations closer together physically
and for wldening their rnaterial differenc€s. This grovtth has
taken pl-ace, 1n the lndustrlaS-lsed areas , &t an accelerating late
during the iast hundred years.l It has ha.ct a revolutionary effect
upon economics, cul-ture, and, increasingly todayr upon polltical
affalrs and questions of international security.
27, Science and technology have in fact becone more important
than land and natural resources as a basis of wealth, and largely
account for the phenomenal. advarr.ces in modern prodr:.ction and levels
of living. Thus, sclerrti.fic and technologlcal knowledge and ski1I,
plus - w[at is nost irnportar:.t - the capaci.ty of a society to aPPly
such knowledge througlr. educate d and disciplined manpourerr largely
explaln the great disparities in wealth anil leve1s of development
Some of the most highlY develoPed
between contemporary nations.
countries have few naturaI r esources t sone of the least developecl
have them in abund&rce.
28, The advantages of modern science and" technology__cannot
general
be reallsed without education and.trainini4. Yet over
in
40 per cent. of the worldts population:-s still illiterate and a
simila:: proportion of the worldts chiltlren do not attend school.
The contiasts in educatlonal levels are extreme. In the U.S.A.
and U.S.S.R. together, there are more young men and women enrolled
in institutions-of hlgher educatlon than in the rest of the wcrld
combined, and twlce as many as in the whole of Africa, 49i" and
latin America. There are altogether more than 3t5O0r000 students
enrol]ed in technical schools in Japan and \iestern GermanyT but
only a l1ttl-e nore than 500,000 in the continent of South America
(3OOr000 if Argentina is excluded), altlrough the population of
South Amerlca is almost as large as the eomblned population of
Japan and rlestern Germany (l5f-'mi:-].1on vs. 142 million).
29. The lack of competent tralned personnel is a central
problem - perhaps the cerrtral problem - in nearly every field of
econornlc anA social development and in nearly every under-developed
country. The 1ow leve1 of education and training in rnany
countrles today lndlcates not only how far they are from achieving
modernisation, but also how dlfflcult it is going to be for them
1 Fo, example in the early elghteenth centu::y it took nearly
two weeks to travel frorn B.ome to london, tho same amount of time
all-owed for officials of the Roman Empirer 11800 years a1o.
During the first half of the nineteenth centuryr thls was reilueed
to two days by rail- and cross-channel stearner. By the end of
the Second trTorlcl l'[ar it took only six hours by aeronlane. Today
it takes less than two hours by iet p1ane.
-1rrCountries tl:at have undergone an exceptiona1ly rapid modernisation process in recent times have usually
done so on the basis of an exceptionally strong s.ystem of educatlon
to develop rapldly.
and
training.
70, The disadvantaged nations that lack educatlon generally
lack also adequate rneans of mass communieation. Hrlwever wellcor:celved ancl vrell-intentioned plans and policies rnay be at the
natronal 1evel, they often fail tr: obtain unrlerstandln.g at the
local 1evel. This fallure of comi:runicatlon makes it doubllr
diffj-cu1t to enlist the volu-ntary co-operation of tire masses of
the people co-operation on which the success of various plans
f or econonric and social cievelopment may depend.
3L. It is true that certain l-iurite,d sectors may be modernised rapldly without funclaraental changes in people and 1n instltutions. This is the case, for example, with the exploitation of
oiI or mlneral resources tir::ough imporbed technology. Another
examplc 1s the control of certaln mass d.iseasres by techniqtres that
requlre relatively 1ittle active participation of the local pooulation and a relatively snall professional corps, as 1n the eradication of nalaria by u.se of resldual insecticides and associated,
neans. Isolated ad.vances, however, do nct constitute a true
developn:ent, and may oi1 cccaslon have conplications.
B.
POPIII,ATIO}I ANJ) PROJJIJCTI
ON
32, A 6;reat amount of attention is now being given ,
deservedly, to the questlon of ponulatjon g::owth 1n the ecor:cmically less developed countries. This grov'rth is unparalleled in
the history of manklnd and j-s due precisely to the fact that at
no previous perlorr, has it been possible to bri.ng death rates down
so rapid.1y, through technica1 lntervention, wh11e birth ratcs
remain untor:ched
or even expand slightl-y with hetter health.
Hovr
lorrg the r:resent process of accelera'bing growth wi-l1 contlmre is,
of course, not known. It is onlll prrsslble to say that lf it
shoul-d continue into tir.e year 21000 - a. possibllity difflcr-ilt to
imagine, although ther:e are no si*ns yet of its letting up - then
the popul-ation of Africa, ;\sra an.d tratir: Amerlca, estfunatetl at
1r900 nil11ons (:.n f955), would reach 5r000 mil-llons at that time,
while the world populertion would move from 2r7O0 r-iill-ions tcl 6r000
ni111ons or rilore.
73, The requiremerrts for the future that rvould be imooseil by
a contlnuatlon of current population trends (reqr.rirenerrts jn foocl
and housing, sctrool-s, teachers, irospital-s an.d doctors, employment
opportunities and social services of every kind) are staggering to
t7_
contemplate. They are al -L Llrc nore so r when it i.s recoflnised
that the less deve loped cor;ntrics must also nov€,, f or:warcl and
achieve a srr1:stantial ad"valnce in econon:ic oroclr.r.ction (per canita)
and in levels of livi.ng. The task, for exan:le, -is nbt only to
maj-ntain'oresent levels of education in the face of a swlftly
exnanding school-age popr-,.lation, bu.t also to raise the r:rcsent
levels by increasing the percentage of ch.ildren in school...
34, For the short periocl. cl.uring which tire population boorn
has been under way - rnainly sj-nce the end of the Second Ytlorld f'ilar
- there has been sufflcien.t elasticity in the econouiic situation
to absorb the yearly lircrements in populati.on vui-thcut economi-c
dcterlorati-on, and cven to all-ow for somo iinnrovemcnt. Iiaterial
production in the uncler-developed countrics has, on the average
(Uut with very wlde diffcrenct-.s), /jrown faster than population.
So far as the avai-l-abIe .rlata lvil.l permit estimates, however, 1t
would appear that the rate of improvement per capitzr has not bcen
substantial; 1t has beeri l-ess than th"e rate of i.rLprovenient ner
capita in the countrj-es al-rcac1y industrialised. The poor have
not treen getting poorer, but the countries alrcadv advanced have
been adva"ncing f aster. By absolute standards the rnaterialslbu-atlon of the less rlerrel-oped cor-rntries as a whole has been
gradually .qettirre better, by coin'ca::ative stanCards it has been
ge'bting worse.
55. These trcnds are ill-ustrated h;r Tabl-e I, on the basis
of aggregates derivu.d, in some case s, f::om necessaril:,r rough
anproxiroations. The gross nationerl- 'products of a number of
lndustrialised countries and of a nunber of under-cleveloped
countries for which information j.s availablel have bcen growing
at simil-ar rates just u-nder 4 per cent. Der annum for the former
just ovcr 4 per cent. for tirc latter (ca1cul-ated by logarithmic
trend methods). Rut the populertion of the under-devcloped
countries 1n questlon has been ex.oanding much inore rapidly than
that of the industri-atlised countrie s. Hence the 'oer capita
prodllct has been growing more slow)-y - 2 t/t Der cent. pir annum
as compared to 2 Z/l per cent. per arrnun in the i::dustrial
countries. Table II glves a rough inrllcation of recent and
projected growth in corrntrie s in di.fferent uncler-developed regions'
1 Dot" fron forty-tvro countrles ancl territories tn the underdeveloped. regions and twenty countries in the relatlvely lndustriallsed regions have been used. The sanple 1s not necessarily
representatlve (tne Unlon of South Africa, for exairple, is lncluded
ln the African data), and national lnco:-re estimates, particularly
rivhen used for internatlonal comparlsons, a.re a.t best very rough
lndications of the l-evel of production of goods and services.
Data on two populous countries, the U.S.S.R. and China: Malnland,
have not been 1ncluded..
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and population
76. If these rates of growtit in production
product of
national
per
capita
the
then
are continued into 1965,
by
something
increase
will
study
the developed countrles under
less than $+OO and reach over {}1?00 by that time rrhile the per
caprta product of the less developed countries under study will
unacstitt tle less than $150, a level of poverty that is wholl-y
Another
century'
twentieth
part
the
of
ceptable in the latter
w,"y of descrlbing the situation is to say-thatr ?s.of the present
1ii1e the average person engaged. in agrlcul-ture or industry in the
industrlalised-countrles produces more than ten times as nuch
in goods and servlces per )rear as cloes the aYerage-person so be
engdged in ttre less developed countries, and by 1965 he will
proAucing more than eleven times as much.
of what
37. Such projections are in no Sense a prediction
will happen. tney are nerely a conmentary on present average
rates oi- growth of per caplta production, detnonstrating that these
continue
rates are too s1ow. Whether even these slow rates willpopulation,
growth
of
into the future, in vi-ew of the acceleratin6q
of opinion.
is a questlon on which there are fundamental differences permit
Some belleve that the technolocical- canacj.t:/ of nan will
continuous :-mprovement in the livinE standards of swiftly growing
i'tse1f by
nopulation. Otirers believe that the probl-em vrill. solve that
time
believe
others
Still
an-automatlc drop in birth rates.
profound
a
is running out; that'rrirth rates w111 not dlop wlthout
socj-al change which has yet to come; and that the technological
capacity to keep on ex'oandin6; production, once tLre. slack is taken
,,ip; i-s firecisely what is ]acki-ng among the impoverished and poorlv
peoples whose numbers are growing most
ebucate-d agricultural
-Those
who take the latter position see the spectres of
rapldly.
stLrvation and war hoverlng 1n the bacliground of the present scene
means by which history has dealt with heavy population pressure in
ttre past
.
in
18. Extensive migration fron densely populated countries
less developed areas, to sparsely populated Qnes does not Seem a
currently acceptable solution, for Yarious economlc, social and
political reasons; such migratj-orcin the past have often led to
unintegrated minorities ancl contlnulng ethnic terislons. Movements
of enoimous size would be necessary to balance the natural increase
in the more populous under-developed countries. There is
relatively littl-e lnternational uiigratlon today, except fron some of
the European countries to other corntries of European culture, At
the same time, it must be emphasized that heavy pressure of population on resources is by no means a universal phenomenon in the
]ess developed areas. There are vast regions that are stil1
sparsely populated - in fact, this j-s true of much of Afrlca south
o1 tfre Bairara and much of South America, plus a. nunber of countries
21
-
of Asla (afghanistan, Burna, Cambodia, fran, T.ritos, li[aIaya,
Tha1land, etc.).
In many of these places there is an appearance
of over-popu1a.tJ.on which is due, however, to nal-distribution of
l-anci under: the existlng agrarj-an system or to lack of exploitation
of available l-and; large areas are uninhabltable because of
unresolved problems of life and. productlon in a,rid zones and hut',tld
tropical regions, including, for exanple, the prevalence of
diseases like ilalaria and African sl-eeping sickness that prevent
settlement. In certain countrles l-ike the Phllippines and
fn.donesia, there is iense population in the central- distrlcts and
Recent efforts
unrler-populatlon in large peripheral districts.
at population redistribution in- such cases, like recent efforts
at birth control- in some of the lees developed eountrlesr have not
been very successful.
C.
IVEEDS OF
TII]] I1}SS I'EVEI,OPED
COiI]VIRIES
lur e _g!9. I-n dqg!$ a f j.g.P1lt c t 1 o-n
19. The current neecls for growth of the econonically less
developed areas are a com'olex of interlocking reqrrirentents.
itith the exceptions noted earl1er, it is generally imposslble to
ad.vance very far in one fielri wlthout supolementar;r growth in
other flelds.
Sometimes the suprlenentary growth comes about
j.n
autoi:r.atically
response to the denands and the dlsequilj-brla
that have been set upi at other times it must be directly fostered.
Needs 1n
A
er
1 c rl 1
40. There is a primary need 1n less developed areas to
increase agricultural production in such a way as to eliminate the
chronic nialnutrltion whleh novr affects more than half the people
of those areas, and strengthen agricultural in.come, which 1s both
lnsufficient and insecure. To help achieve this purpose, lndustriali-sation 1s required as a means of supplying fertllizers and
equipment r provlding a deroand and. a market for the lncreased
i:roduction, and creating incentives to greater productlon 1n the
f orm of inexpensive consumer goods. :Yodernlsation of agriculture
al-so requires better eduoation, without wh.ich the individual
irj-s habits::eadi1y and rnake use of
farner is not apt to changerrinfrastrr:.cturerr
of modern irtstitutions
existing knolvledge, and an
upon whlch agricrrltural pro€lress can be built - a proper land
tenure s)rstcmr credit institutions, marketing arrangements, and so
olf. I,and reform in many cases i-s an essentj-al first step that
has yet to be taken. Substantial aqrlcultura"l i-mprovement can
often be achieved onl.y' wlth i.rrigation works; sometir:les it
requires a river va1le;J devel opment. !'ina11y, the population
needs nuch better healtl: if prodr.rction is to be raised to modern
-22
1eve1s disease and debility nov,r take an inordinate cut out.of
agricultural production in sone of the less d.eveloped areas.a
41. Paradoxically, fron a broad persoective of develonnent,
if conditlons in agriculture 1n l-ess cleveloped eountrles are to
improve by nodern stand,ards, then agrlculturers share in the
national prociuct must decline even as agricultural production
increases, and workers must be attracted out of it to other nore
renunera-tive work as agi"icultural incoine grovrs. the very fact
that agrlculture is the occupatlon of the large majorlty of the
population is in part a reflectlon of the poverty of these countries
\then two out of three men work 1n
and in part a reason for it.
the fields, the energies of the nation w111 be sr: absorbed in
growing crops that l1ttle else can be produced of the essentials
These can perhaps be obtained to
and amenltles of modern l-ife.
some extent through. imports if there is a large agricr-rltura1
export trade. A few eounbries nery attain a relatively comfortable
standard of living in trris fashion. But owing to the limits on
derriand for agrlcultural products, and the hj-gh agrlcultural
productivlty of lndustrialisecl nations, it is obvious that the
under-developed countries, contaj-ning between two-thircis and threefourths of the worl-dts popul-ation, cannot all concentrate on the
export of slnple agricultural" cor,rrnoditiee as a riea.rls of irnproving
their livelihood. It is not uncorrmon to,1a./ to find countries that
have a surp1us of an agricul-tural export comnodity, such as coffee
or tea, and a,t the same time an unsufflciency of proner food for
donestic consumption.
42. fn addition to the alrove, therefore, ra"oid growth of
lndustry ancl 1ts ancillary services is necessary to agrlculture j-n
order to absorb labour that is not needed in agricul'brrre as
productivity increases, and redrlce rr-lral under-employment, whieh
depresses per capita lncomc. Such urrder-enployraent is already
wide-spread in a nurnber of countries at current 'technological
leve1s and cculd lead to an irnpossible si'buation vrith modernlsation
of production and simul-taneous quick population growbh.
43. At the saine time, expe::ience has shown that it is
essential to proncte argricu]tural development 1n the less devel-o'oed
regions j-n conjunctlon uil'bh j,ndrrstrialisatiorl - essential flom the
I-
to estir:rtcs reported 'by W.H.0., for exanple,
'ril:';-'.,1:. of-;en striices .at the peak of *he agricultural seasone
causes El Si.i,racior, wlth 2 l/2 lill-ion population, an annual
produeti,:n loss of $40 nrittion and puts the equivalent of a 5 per
cent' hld.den tax on many of the comnocr,ities shipped abroad from
.Aceo::diq:
malaria.
malarious &r€os.
point of view of over-al-I development as well as from the point
of vlew of the agricultural sector which contains the majority
of the population. Industrial developnent draws strength from
agrlcultural developrnent, and the reverse is just as true.
Expansi-on of the industrlal l-abour force inevitably brings a
tlcmand for more food which, 1f not,produced 1oca1Iy, will have to
be inported, absorbing funcls neecled to purchase capltal equipment
ancl encouraging inflation.
Agriculture (understood. 1n its
broadest sense), suplrlies an important basis for industrial growth
not only in regard to food processing but also in regard to the
industrial use of wood, cotton, and other raw roaterials; the
dernand for products fron thcse naterials lncreases rapidly wlth
development. Agriculture may also have to provide a good part of
the savings to f lnance inCustrlal deveLopncnt, partici"llarly in the
early stages. Finallyr Br exoanding lndustry need.s an expanding
market to purchase its in.dustrial oroducts, and agricuJ-tural- growth
can helppovide this market. In nati.onal or regional development,
agricultural- output and industrlal output nust therefore be ex,:anded
in appropriate relatlon to each other; neither asoect can be
safely neglected.
++. Industrial-isatlon 1n the less developeri. countries 1s
currently held baek by a nrrmber of factors, in adcii.ton to the
lnadequacy of the agricr-rltural- base:
(f) lgnorance of resources and of the possibilities and clesirable
directions of developr,rent of resources;
(2) lack of skilled workers, tralned supervisors and competent and
enterprlsln6; industrial- managers and olvners a situation
ordinarlly found togetirer with a surplus of unskilled labour,
petty trad.esuen and coinnercial and land speculators i
3) lack of power and of transport, and other clenents of the
lnfrastructure, plus lack of grouped facilities that will
provide external- economicsi
(4) lack of capital equlpment, and ar: inaclequate rate of capital
fornation to provide the fi-narnc1n65 of industrlal growth;
(:) l-ack of markets and of knowl.edge of potential markets;
(5) obstacles arislng fron the social climate and institutions,
and polit ical ancl acLninj-strative obstacles .
Some of these requ.irements for industrlal growth wil-l be seen to
have a bearing on r:ther forms of development. Thus, adeqr-rate
transport is essential not only to industry but also both to the
extension of education and. hea.lth fa.cilitles to rural areas and to
the economic lvelfare of the farner, who cannot sell- his products
with profit under crrrrent difficulties and costs of transportati.on.
45, Ca::1tal is an obvious need in nost fiel-ds of economic
and social development. lack of cacj-taI - or in sorne cases unwise
use of it
seriously impedes development today in much of the
worl-d. There has been lnsufficlent adrrance in recent decades,
both in the rnoblllsation of domestlc capi.tal- that is lying idle
and in the attraction of foreign private ca-oltal under assurances
mutually satisfactory to investors ancl to the countries of investment. Increases in the supply of capital fron foreign govern-
mental and from lnter-governmc;ntaI sources for investment in less
developed countries 1s a fundaurental po11cy question in lnternatlonal econrcmi-c relatlons and currently a matter r:f much discussion.
46. Cheap and plentj-fu1 power is not only essentia'} to
industry - the supply of mechanical- energy has been a key to
lndustrial advance since the beginning of the industrial revolution,
the techniques of agricultural- oroduction, inclrrdlng fish.eries and
forestry, have also been revolutionised by power-r.tsing devices.
Electrj-cal power has been a vltal factor in scclal- development,
particr;}arly 1n the home, both in clties and in rural areas.
47. An outstandlng characterlstic of a developing industrial
economy 1s the increasin6S speed wj-th r,vhich it consl).mes conventional
natural re sourc€s. The dernand for energlr su.nrlies is e:cpected to
grow at an increaslng pace 1n the next decades. The decennial
doubllng of power usarle in the lrrst decad.es, the long-term tendency
for the cost of conventiona.l fuels to increase, and the prospect of
their eventual shortage have made it llecessary in some coun'brles to
look towarcJ new sources of power in the forin of m.r.c1ear energy.
fn time the new forns of power are also expected to play their
part in transporb and in the oroclucti-on of inCusbrlal chemlcals as
well as electricity.
48. A serlous problein related to industrlallsation in the less
developed countrles 1s that of technological une,tlrloyrnent.
European and North America.n countries generally entererl the early
phase of industrialisation in the context of a. labour shorta.ge.
As already indicated, however, ii?.ny of the less developed countrles
today have a labour su.rplus, both rural and urban - there is not
enough work to go around. fn so far as industrlalisatlon means the
substltutlon of nachinery for manpower, then it can. lead, under one
set of circumstances, not to increase of errployment but to lncrease
of unemployment and under-e:lployment. Growth 1n productivity - in
the arnount of production per worker - whj.ch is often used to deflne
the essence of economlc developrnent, can mean not only greater
prociuction v'lith the same number of workers, but also the same amount
-rq-
of procluction wlth a smaller nuraber of emploSred urorkers. This is
Ulodern
a matter of concern aLso to the Cevelopecl countries toda"rr.
automation can greatly reduce the labour factor 1n production.
49. Experienee has shovrn that in countries wlth. an exDandine
economy, fears of teehnologlcal unemploynen.t have been generally
exaggerated. The workers who are replaeed find employment ln nevr
industries and sL-rvices that snrin.q up; But in a stagnarit or
slow-moving economy the introduction of a single large ntodern
lndustry competing with traditional industries can concelvahly do
more harm than good, oarticularly 1f the orofits are not reinvested for further domestic development.
50. This question has special relevance to rural or cottage
industrles, where the worlcers disrrl-aced by machinery may silnoIy
fa1l back on the land, increasing agrarian over-population.
There are widely differing schools of thought on the policies that
should be takerr in this regard. One school cc,nsiders that it i-s
better to suffer increase i-n unemployment if total production can
be expancied and economic developnent sparked; another school
considers that large-scale modern industries should not be introduced in areas where village indu.stries prevai-I, but the latter
should instead by grad.ually modernised.'
E of_lla qS_q]}4_Qg,l$*o-$:.t -i e q
5L, l/lany of the economically less developed countries derlve
a substantial part of their disposab1e ineone from the export of
one or two nrimary commodities, like coco8., eoffee, bananas, rubber,
The investnent capacitrr, income and vrelfare
coprar coFper and tin.
of these countries corresoondingly d,epend to a large extent upon
prlces in the lnternational market, which fluctua,te under the
lnfluence of a number of factors. Exneriences in the last
recession have revealed cases ln which a cha.nge 1n such prices has
caused a financlal l-oss greater than the total val.ue of all external
aid being glven to a country.
P
r:ob l-e
f To take an extreme exairinlc, fourteen workers, operating
fourteen glassblorruing machine s, now prod,uce 90 per cent. of the
glass light bulbs used in the United States ancl all the.glass tubes
used in radio and television scts (except plcture tubes). This
does not incl-ude, however, the workers involved in the construction
and servicing of the rnachines, 1n the production of energy to run
them, etc.
2652. Ilhile excessive denendency upon exncrt comrnoditles is
generally deplored, it is nevertheless a fact of current economic
Diversiflcatlon of production is to be encouraged but
Ilfe,
meanwhile actlon needs to be taken to avold the worst aspeets of
the present situation. The probl-ern of cycles 1n commodity prices
seriously affects the economic and social development of the underdeveloped countries and shc'uId be viewed in that context. At the
Saine time, anti-cyclical price support measures shoulcl not run
counter to long-term market trends or serve to subsidlse overemploynent in sectors that need to be reduced in favour of industrial growth.
57. Thls is but part of the larger problem of trade and
narketing that the less developed countries face. There 1s a
basic question as to urhich agricultural and industrlal products
should recelve priority in lnvestnent, in view of the posslbilities
of trade. Fa.ced toclay wlth Limited domestic markets, strong traile
barriers, and fierce competltlcn where ba.rriers do not exist, the
less developed countries need to have some concepti-on of future
foreign, as ulel1 as domestic, demand before deci.cling investment
For examnle, it may be unwise for a particular less
priorities.
developed country to invest in cotton for export ourposes, but
invcstment 1n fruits and. vegetables nay be advisable if demand in
nearby developed countri-es for these latter nrodu.cts, which are
labour-intensive, is expanding rapidly and 1s 1ike1y to continue
to expand. There is, of cotlrse, the danger that too many countries
reacting to a projection of future demand. might crcate an unforeseen over-supply for that r€BSorle
54. Comprehensive projections - provided they pr'ove su-ffl..
clently reliable of future supply and demand trends, and of the
novei-aent of other economlc variables on a regicnal and world basls,
would help neet an important requirenent for natlondl econonic
cleveloprlent policy. A nunber of other consiclerations polnt to
the need for a greater degree of co-ordination ln the development
plannlng of dlfferent countries, and for an over-all perspective
on future world economic development, to which the policies of
lndividual eountries could be related. As more and nore countries
nod.ernlse and develop, the rcgional and world economic pattern
will necessarily change, and more thought needs to be given to the
shape of things to eome.
55. With growlng economic inter-deoendency, it.is apnarent
that the external impllcations of internal policies (a.nd of
reglonal polieles) are becomlng more serious. The question of
the organisation of regional markets has bearing on this problem'
So al-so cloes the fact that, by and 1arge, lnstltutional- arrangernents for worfd trade might be lmproveil.
27Ec
onomic pe v.S-Lq! gg_g_t_ g4g*
q
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qng e
55. Ilconomic and soclal elements are closely interwoven and
constantl;r inter-acting in the process of development. Thls is
quite evldent ln the current nhenornenon of urbanisiltion in less
devel.oped countries. Thc pressure of nopulatj-on and the poverty
of agrloulture, together wlth the attraetion oF urben consumer
gcocls and hopes f or urban eurnlolrment, have 1ed irr recent years to
a tremendous migration fr'om the countr.yside. Cities of undercleveloped countrie s are growing at a violent rate, urith consequ.ent
difflcul-tles in a number of flelds - employment, housingi, trans-
portatlon, sanitatlon, family stability, juvenile deJ-inquehcyr and
others. The urban populatlon has in fact generally grown faster
than havc industry and employment opportunity. Improvement of
thls situation w111 clepend up,:n the clevelopnent of both agrlculture
anrl industryr Bs well- as upon the organisation of vari-ous soclal
services and the lntroduction of physical planning'to prevent a
growth of slums and congestion that may otherwise prove irremediable
1n the future,
57. Intlustrialisation i'bself requlres far-reachlng chaqges
in the nature, qualifications, and mode of life of the labour
force, and in social lnstitutions and attitucies. It mery be held
back by fail-ure to achieve such changes, it rnay also push ahead
and force certerin changes upon a soci-ety that is unprepared to
assirailate then. Some of the problerirs tha,t accornpanied the
proletarlsation of the l-ab,:ur force in the ear1y stage of industrial- development 1n \i'/estern Europe and l[orth America are now being
faced. to a growi.ng degree iri Asla, Afrlca and L,atin Aruerj.ca. If
a repition of the worst experiences of industriafised countries is
to be avoided, positive measures must be taken to achj-eve a better
lntegration of economic and social developrnent. One obvious need
is for training and orj-enta"tion of labour so that it may becorne
adapted to the new sltuation. Another need is for the development
of social instltutions that will provide organised means of dealing
with the problems in question.
58. It is now rlore widely recognised the"t the welfare of
labour depends not or:.ly on the slze of its share in the national
procluct but'also on the growth of that nroduct - that is, u.Don an
expanding economy. Econonlc developnent 1s thus a requlrement
for any substantieil- advai':.ce in labour welfare. The miserable
waazes or other income now received in the less-devcloped countries
woul-d not be greatly improved if the total weal.th were redistributed..
There is a very real problem of maldlstribution, jt j"s true, with
conspicuous eonsumption often existi-ng side by side wlth all too
conspicuous poverty; but there is not enougtr total income to make
redlstrlbutlon, through wage policles, social security; etc., a
sufflclent answer to labourrs problem. Accorclingly, there is a
gi'owing interest j.n mea.ns by which labour ean contribute to
i.ricreased productivity; also a need to recorrsider' labour policies
1;lrat may demonstrably operate against the 55rowtir of productlon.
59, At the same time, 1t 1s recognised that substantial
cconoi:ric advance cannot be erchieved with a labour force that 1s
unstab-].e, illiterate, untrair:,ed , i ]I-j'ed , badly housed and
rtebil-itated by rl1sease, There j.s a glowing body' of cplnion that
irrvestment in hrrma.n resources ma], pro\re as productive in the end"
as investment in capita.l equi.puent, nlthcu;4h it j.s obvious that
both are essentlal for any large..scale econoniie development,
60. The eoonornic anti the soeiiel aspects of development are
particularly lntertwlned, in tite agricultural sector where the
family is sj"niul-taneously a nnib of ecorr.omic enterprise ancl a social
institution. Th.1s is one I'eason f or th.e j-n:portance attached to
efforts at simultaneous economic and socj-al change through
comprehensive prograhmes like conmunity de','elopnent.
61. One other problem inr.olving conplext lntere,ction of
economic and social elements Ceserves mention here, namely
inflation, Expe:rience shov,rs ttrat econonlc devel_opment is often
accompanied by rnflation, althorrgh the relationship 1s by no meAns
simpJ-e. i-Ilgher wages with.out corresponding increase of production
can promote infla.tlon if tiie costs are passed. on to consumers,
rather than absor'bed by nanagenent or use<t to stlnnula.te greater
efficiency of production. Evcn if accompanictl hy higher productivity, however, higher wagjes in one sectorl e ,g, industry, can be
aesociated- with i.nflation und"er certai-n circumstanccs if there is
not a cor:respoird.ing irrcrease in prori.uction in c'rther sectors, such
as a6lrlculture and pr-rblic and pri.vate services. Sonie of the
measures used to control or ci;unte:ract inflation can slow down
development. Highor price s of f ocri and other necessities can
unclermine benefits p::ovicleo by lmi:lroved l.rage reasures ancl render
social securlty largcly ineffectua1. There u,re wlde d.isagreements
on pclicles to deal- vri.th inflatjon j-n rr:lation to developrnent,
Pr.pb I ems
qil&_l-fele_!-a-1 +_gy and_.Jgst 13:&i-og-?.I.
a.@lg,ae
62. A tendency towards a ciual economy is characteristic of
countries in process of industrialisation: .a moclern industtrial sector is groviing side by sfu'le with a technol-ogically bac-kward
sector. fhe contract is often visj-ble a.nd striking. fncomes and
weJfare a.re rel-atively high in the forner, relatively l-ow in the latter
sector, The nlnority of thc tr;orlirel's that have been absorbecl into
the modern sector may acquire treining, certai.n welfare beneflts
by virtue of their employmert, anr-i the protection of labour J-egislation, of social securlty a:;id of trade nnicns; they rnay benei:-t
many
20-
fron exlsting public housin6l projects, l.{any others, hosrevor, l-ive
on the fringes of this modern seetor. They are often casual
u-nskill-ed vtorkers, illiterate and poor, with 1ittle soci.al p::otec+
bj.on other tkian what they cl-erive fron friends and relatives.
'Ihey rnay be engaged in street trades or emplo)red in srla.l1 workshops
r,viiicir cio not observe the labour laws and regr"rlations applied to the
l-arge:: undertakings. St1Il greater nu.mbels live in r'.ral areas
lvhere the lvelfa-re antl securi.'ty of the indivldual is provlded almost
exclusively by the fairily i;roup ar.d often at a very low level for
all.
63. i,loclent vocr.iiicrr..-',--1- traj.uj rig eini *::lnlotrment service
fa.cilities are requirecr'cif tire tecrr:11i.,r_rica11y nrogressive sector
of the econolly if it is bri sccirre blre r,ranpower resources necessary
for fr-rr.ther econonic pr.r,-rwtlr anC to 1:rcvi de growing ernoloyraent
opportunities to the pcp,rln'Lj.oii. llegulatir:n and inspection of
working coirditions is neoerrsa.ry in ordor to proteet those workers
Sone f orms of
who have becone connitted "to inc1ustrial work'
pe,,o::le
becoine
exclusively
have
fr:r
who
are
needed.
socia-]- secrrrity
clepenclent on wage earnlnq enplol/rient for their own and thei-r
tlurlng
fanil-yts welfare. At the same ti.ne such measllres na.y not,
the initial stages of econoraic growtl.i, directly benefit 'bhose who
h.ave not yet becone absorbe,C into the teehnol-ogically aclvanced
sector; and this constitutes a chal)-cnge to ccntemporary -l-abour
and socj-a-'l- welfare nolic;/.
l[ore attentiorl needs to be given to
the Ceveloprient of policies and i-nstitutions designed to help the
nunerolrs lowes'b incone groups of the urban ponulation.
54. In. the field of sccia.l- se:.'viees f or tire need.y ancl for
th.e fam115r, sone of the irethoils evcl-ved in i;iodcrn inclustrialised
societlcs are sinilarly ineldeqr.rate tc deal witli the problems of
the nuLlerous poor 1n the under-cieveloped countrj-es. Financial
relief in the forn of car-:ir is, in gcneral, nob possi.ble, even 1f
it were desirable as a rcgu.la:"r 'i-,cr1i-cy in those countries.
fndividua1ised case-\ivork nethoris fo:: Cealing wlth the needy are
not practicable when the liitter e.re tc bc ccunbccl. in thousariCs
or i.rillionsi trained casc-workers fcr prograianes of such rnagnitude
aTe sinply not availeible. f he type of approach to social welfare
that is based on the corcept that thc individrral., if 1n necd, has
a right tc, varricus kinds of pub11c assistance estab.l-ished by 1aw
cannot bc transferred to arcas wherc publi c resources for assjstance
arc practlcally non-exlstent. Tho constructlcn of custoctial homes
etc. - also
- hones for children, tl':e aged, the r;ienbally defective,
cannot be a vcry satlsfactor;1 solutiori for countries 'bhat do not
havc the resources tr; construc-L tirer.i in ilore th.an token nuir,.bers.
Eve rr in the rievelopcd corlntrics r it rsJr 13s not e d, cust odial
-30'
lnstitutlons are no longer regarded as the most deslrable method
of dealirig wlth the problens in question, and more enphasis is
being placed upon strengthenlrrg the faciLlties of the normal
farnily and conrrunity.
65, There is a danger that in the process of change old
lnstltutions and nethod.s of hanCling socia-1 prcblems w111 be l-ost
befcre new ones can tre cstabl-1shed to reolace thei:r. The traditional ties of fanily anci cor:urunity arc apt to be weakened or
destroyed by urbanisation and industriall.isabi-on, but the countries
in questlon na.y nct be able to takc over the expensive welfare
institutions and, nethods of nodern i-ndrrstriali.sed States (whether
or not they are otherwise approprlate). The result may be that
neither home, comnunlt;'r nor StE:tc naros for the chil.d who needs
care. The situaticn cal-ls for i:r rrew look at the rnethods of dealing with populatlons unclergol.ng treinsition, :Lncluding the question
of pronotlng institutional arre.nAements of a transiticnal nature.
It also points to the fundamerrtal need faced by the less developed
cor-rntries for the maintenanee of family stabllity and c,om.munity
organisation through tire period of transition to nodernisation even as the structure and environnent of the fanil)r and community
are changing. If this can be done, nany of ihe worst social and
huilan consequences cf transit j-on ca.n be avoidedr or at least
tenperecl.
66, The question of institutlcnal change is, in general,
a matter of speeiai urgency for populations rnovlng fron rural to
urban l1fe; for agrarlan ponulations under antiqr;ated systens
of land tenure; and f or inclrgenous popul-ations that are held
back by institutlonal aircl cultural- factors and isoLated frorn the
rest of the society anrl econony. fnstitutional change is delicate
and difficult - the fallure of land reform projccts in scme
countries, ov,iing to a collapse of productivitrr, and" the failure of
co-operatlves to take root in rnan"r; less developed areas, bear
evloence of thls.
At the sane tilne, the marsh.all-in,q of indiviilrral
encrgies throu..,h institutions and group organlsations in projects
of rnutual- aid and self-help may be the only means of rlaking use
of hunan capital - tho ehief fcrrn of capital in the under-develoned
reg;1ons.
7L
Hoqsirlg
67, Housing is an area where some form of organised selfhelp is baclly needed.. Yfretched. h.ousing conditions - dwel11ngs
devoid of the most elementary facilities and unfit for human
habitation or even dornestic animal habitatj-on - are promlnent
features of nearly all under"-developed. countries, and" can be
found in some of the most aclvanced countries. The efforts of
the post-war years have fai.led. to make a vislble dent in the
housing situation ln the poorer coun'br-'ies, Rapid population
growtLr and urbanisation have aggravated the difficulties;
peripheral shanty tornns oftcn seem to spring up overnight and may
create even worse health problens tir.a.n cen'Lral urban slums. A
rnajor difficulty lies in the fact that housing is not a field
where modern technological advar:ces have been able to achieve
rapid progress for the masses of people in less d.eveloped areas.
The proviiion in such &I(:&s of adequate dwellings by current
rnethods of construction wouL.d consume the greater part of the
world's total investment capital. It is clear that, in dealing
with slums and. shanty-town conditions, not only remedj-al but also
preventive measures are called for, which go far beyond the present
conventional methods.
Hea].th
68. 0n the otlier hand, certain modern techniques of public
health have been applied in economically uncler-c1eveloped. areas
with s triklng success, leaciing to reductions in mortality rates
mol:e marked than the progrcss in many other fields of economic
and social development. Nevertheless, the world health situation
has a long way to go before it reaches the level that is technoIogically-possible. Some millions of people still die each year
from diseases than can 1n prlnclple be controlled or wiped off
the earth today, and many more are incapacltated by them. Infant
-32
mortality rates - which are a fairly good indicator of general
health eonditions reach the lcveI of 200 or more per 11000
Iive births in many of the underd.eveloped. countries, whil-e in
some of the most advanced countries they have been reduced. to
20 per 11000. If the worl-d. level were reduced to 20, over 16
m1l-lion children under one year of age who now die each year
would survlve.
69. The d.isease picture varies considerably rrrlth the level
of social and economic development; the unclerd.eveloped areas are
characterlsed. by a high prevalence of comminicable diseases, while
in the developed. areas cancer, rheumatisn ar:d mental and heart
diseases have peplaced. the comnunicable diseases as the most
pressing problemst
?0. fn the underdeveloped. cou.ntries, a substantial amount
of the mortality and sickness of chtldrell, particula,rly in the
vulnerable years of early childhood, 1s also due to malnutrition lnsufficient food. and the wrong kiird. of food - as wcll as various
forms of intestinal d"iscases resulting from unsanitary conditions.
Although tLre extent of malnutrition is not knorrn with any d.egree
of exactness, j-ts presence among chlldren in rreny areas is evident to the eye and. its after-effects ln adult life are extensive.
The problem ls not only the inadequate production and distribution of food.r but also faulty consumption habits arisi.ng from
ignorance.
71. One important aspect of the lvorldf s health picture is
the fact that more than half of the worldts population remalns
without the most elementary sanibary facilities
safe water
and facilities for the sanitary disposal of human wastes..
Another factor is the lack of me,lica} personnel. While in high}y developed count::ies the ra'tio of physiciaris to population ii
approxiua"tely l to l-r000, in the rest of the lvortd it ver,ries betweel to 51000 and l to 501000. The problem is further aggravated ]by the general ignorance of the public in matters of neatttr,
which in turn is related to general 1.eve1s of eclucation, attitud.es
towarrls sclentiflc explanaticlns, availability of means of communication, etc. There 1s also a clea.r link between health and the
economic situation, nrith influences operating in both d.irections.
72. Thus while it is trr.e that for the control of certain
diseases, I1ke mala,ria, the pr:oblern is prlmarily one of finance
to obtain equipment, and of aclministrative organisation to carry
out the campaign, in most aspects of he:al-th a grerit dear more is
required.. For some d.iseases, thc methods of prevention and.
effective control have yet to be dlscovered. and- here the cruclal
need is for research. Thls is true, for exampler of certain
tropical diseases, r'heurnatic cllscases, cancer, - cardiovascular
d.lseases, etc.
rhe very process of lndustrialisation is also
throwlng up a nunber of new health problems calling for constant
research
-33
Education
77. Educational need,s of the less d.evelopecl countries are
intimately ::elated to aluost a1-l the otl.Ler necds clescribed above.
Education is not only an important means of ecoriomic development,
for example, but also a powerful a1ly in tkre understanding and
It is an essential means bY
improvement of health conditions.
which people become capable of exercising their civic rights and
political responsibilities - a matter of particular irnportance to
newly developing States. Above all, education ls a human right
and. an end in itself , coneerned with the inte]l-ectual and emotional d.evelopment of the individual.
right, the goal
7+. Precisely because eclucation 1s er human
j-s
primary
of
ten given a
cluctrtion
e
of universal anct compulsory
Yet a balanced. view of national, social and
high priority.
economic neecls suggests that it is alslo esserltial to expend and.
divcrsify secondary education. This is partly because of the
need. for iryel1-traineci primary school-teachers and technical.Iy
competent personnel in industry, eommerce ancl agrieulture, and
partly to provide the basis for higher education as well a s an
efficient government service. Simila"r considerations aPplY to
show the need for iastitutions of higher eclucil,tion, both universities and. technological instittttes. tr\.Lrtherr aJl effective
ed.ucatlonal system shoulil reach ad"ults as well as child.ror and
masses of people in the less d,eveloped.
youth.
-countriesfhe iltiterate
need a mlnimum of ed.ucation in some practleaJ. form to
enable them to improve their living conditions and adjust to the
mod
ern world..
75. AIl of this serves to emphasise the gl'ave problems and
the obstacles to educatiorral aclvanee arising from an insufflciency
of fg:rds for the construction ancl equipment of s chools and for
the reeruitment and. training of teachers, aclministrators and
There are
other personnel need.ed. to covel' these varicus fields.
also problems r:f making the most effective ancl strategic use of
such iunds as rnay be availablc to national ancl local authoritles
who are responslble for the development of a cowrtryrs educational system. Thus, one of thre most difficult policy questions
that the less d.eveioped. corrntries face l-ies in planning the rhythm
allocatlng
of development of education at its various levels ancl(primary,
levels
ferent
d.rf
to
the
onl-y'
not
resources
Scarce
secondary, highcr) but also to the different fields of education
(general- education, technieal education, study of the humanities'
The patterns of
study of engi-neering, merlicine, lalv, ctc. ).
requirement no dou.bt Oiffer from country to country. One fairly
common d.ifficulty may, howcver, be mentj.oned.: the fact that a
d.earttr of variou,s categories of technically trained personnel
required for the economic and social oevelopment of the country
is often found existing sirnultaneously with unemployment among
second.ary and higher education gracluates rivho cannot find the
white-collar jobs that theY seek. In general, the situation
calls for closer attention to the relation between ed.ucation
policy ancl development po1icY.
-1475t Questlons of dlstribrrtion of expenditures and of
are, of course, not pecuriar to educa.tion.
fhey are to be found 1n rel-atlon to every soclal fiel<i - &sr
f or e]rample, in the cluestion of the approprlate pat.tern of
expenditures on various types of health service iri less developed.
countrles. There is also the more general and even more difficult question of the appropriate rever ancl rllstribution of
public expend.iture for the total field clf economic and social
d.evelopment in the less developed countrles - a cluestion that
concerns both national policy and lnternational policy, and in
regard to lvhich more wilr be said rater on in th-is report.
balanced. growth
D.
CONCERNS OF
IHN
DEVELOPED COII}ITRIES
77. The econornic and sociar necds ciiscussed in the prelargery the econemicaully ress developed
countries. -con-cern
lYhile assistance to these countries has become
firmly established. as the prinary goal of economic ancl social
action of the united Natlons ancl t[e specia]ised.
agencies, it is
by no means the exclusive goaI.
78. As noted earrierr &ssistance in the oevelopment
the ]ess cleveloped countries is itsclf a na'tter of profound.ofconcern and. interest to all countries, for both humaniiarian reasons
and' reasoils of national- self-interest.
In ai1 expand.ing
"'
lmprovement of the material well-being of the poorer naiionu,
".orro*y,
obtalned. by means of greater prod.uctlv:-ty, usually beneflts
rather than detracts from the well-being clf other-nations. As
countries develop and purchaslng polver irrcreases, new markets
are_opened up with a resulting growth of mutually beneficlal
trade. As wage levels in the less deveroperL coi.ntrles are
ralsed, the competitlon of und.erpaid laboui in world markets
lessened-. Improvemen'bs in the socio-economic infrastructure is
of the less d.eveloped countries, improved baslc services, better
transportation, and trained manpower are rikery to resuli
bettcr cri-mate for investment, public and privite, which isin ofa
importance to both the developed and the less d.eveloped sountriesr
79. There are othcr mattcrs carling for international
actlon which are of even more immeciiate rel_evance to the
developed countries. rn an a6e of emerging reglonal markets
(whlch may be potentiarly of tiie highest"imfior,tEr,"u io economic
growth ald improvecl 1evels gf living.but which rnay disrupt established patterns of trad.e ) it is essential that"ways and. merans
be found to harmonise the policies of State.s and grolps of
with a view to the achievement of the conmon goorl i By theStates
same
token, chronic lmbalances in payments and aan[ers of inftationary
trend-s and of recurring recessi-ons that spread b,ct'oss frontlcfs
call for more than national action. The more developed. nations
benefit from intcrnationar eommod,ity
consul9i"9ctIy
tations and errangements ( including surplus oi"posai
"urr"yi,ur"rrrg"rrents)
ceding pages
-75
from the application of stand.arcls in regartl to goods in. internatlonal commeree I frorn aninral and plant quarantirre; from
uniform world information on trade, production, consumption, etc.
80. Exchanges of thc latest scientific informatlon and
theory arrd of technological innovationsr while of world-wide
slgnificance, are of particular importance to the more highly
developed countri-es with their vast research progra.mmesr laboratories and. technological j:rstitutions. Scientific progress
and knowledge is growing at eueh a rilte th.at concerted international efforts have bc;come eseential to enable scientists and
technologists to keep up wtth new research and rlisc<;''/eries in
the various parts of the world.
81. Increase; in sctenttftc cc-eperation alrorig natione has
in fact been an outstanding dovelopnent of the l-ast decad.e,
mirroring the teclurical age 1n whlch we live antl the startling
scientific aovances of the laet 20 years in fields sucLl as
fundamental nuclea,r physics, atomic energy ancl (rrrost recently)
the exploration of outer space. There has been repcated tlcmonstration in the post-war years of the universality of s cience,
of the wastefuh)ess of secrecy in research a.nd of the extent to
which the lndustr.ialised countrie s ca.n benefit from each otherrs
lvork.
82. In the social field,, developed. countries are beset
with many probleras of their own, the solutic''n of whbh requires
or couid be facilltated by international co-opcrirtion. fhey
have much to lear:n from each othcr on the subjcct of housing
and tclwn planningr &S metropolittrn congestion grows daily more
serious. They face common problems related to the expansion
a1d revision of their oducatioria,l systerris, particular'ly at the
secondary levelr &S the: school-lcaving age is ex'i,ended and.
new e<lucational clemands are imposecl hy an evolving technological
society. They also face eornmcn problcms related. to the usc of
new-found leisure, ancl to the chariging age structure of their
populations, particularly thc iltcreasc in the pi:oportion of
etaerty peopl-. In matters of he,alth they sharr: the intcrest of
the less developcd countrics 1n epiderni.ologlcal research and
Thcy have a primarY interest
international hcalth regulittionsr
in questions of scnescence ancl dcgeneratiVe ciiscases such as
At tl,.is s-t;age, the question of atomic
cancer and heart d.1scase.
radlation resulting from the pcace',fu1 uses of atontic energy
is also pri-rnarily ar probleia of the highly developed. ccuntries.
Automatlon, which is chrrracturistic of modern inctustrial clevelopment, has brought to f,hs fore spccial prolllcns itt terms of
tralning, J-abour-management a"nd human relations' in irtdustr.l'.
-36
83. In the r'iel-d of crime and dellnquency there is a
serious and wide-spread problem today (but appearing to be
particular'ly acute in some of the nrost highly developed countries):
that of juvenile d.elinquency. The various servlces that experts
have hoped would be effective in preventing juvenile delinquency
have not generally succeeded. in doing so, for whatever reason.
The question of underlying causes needs to be reviewed from a
broad perspective, and new methods evolved to deal with these
causes
84. These are but examples of major problems whlch elearly
indicate that the over-::iding priority justly assigned to meetJng
the need.s of the less d"eveloped countrles should not be allowed
to be clqrd tlle prob-!-ems of the more highly cleveloped parts of the
world". Developed countries irs well as the Less developed
countries have a right to cal-1 on the asslstance of international
organisations where neecled, and particularly since sound. economic
and. social eond,itions in the advanced. countrles will enable them
to contributc more effectively to conditions of welr-being
throughout the world.
E.
H-,TiViAN
RIG}ITS AND NCN-MATER]AI VAITIES
85"
'.lhere :remains one basic problem of uni.rersal signlflhigh-Ly
g?nce,
important, controvcislal and. cleeply disturblng.
rt is the problem of human rights, of exproitatiori of man by man,
and o:fl o.iscrimination. stated in positive terms, 1t is the
problem of the recog::rltion of. th,: dignity of the human person.
86. Ihe irnporta;rce of basic human rights r,vas r.ecognlsed ln
the charter, which cal-i..s for thcir promotion. Broad agreement
was reached on the substa.nce of ttrese rights in l94B when the
United. Nations General Assembly approved-the Universal Declaration of Human Rlgtrts. The I)eclaration covered clvll and po1-lticar as well as cconomjc and. sociar righ.ts. The civil rigtrts
included., for e1apn1e, the right to tire, 11berty, and. se6urlty
of pcrsonl prohlbition of sl-avery and the sLave irade; frced-om
from tortur:e or eruel, inhuman, or clegrading treatment or
punishment; the z.lgJrt to rccognition a.s a pcrson before 1he law;
equal protection of the lavr; freedoirr of thought, conscience
and. religion; freedom of opinion and expression; and freedom
of peaceful- a ssembly and association. ilrc political rights were
defined as: the right to take part in the government of oners
country; the light of equal access to public service and a provision that.rrthe
will of the people srra1l be tlre basis of auihorlty!
of governmentrr. The economic and social rights included,
u*or,g
?
othcrs: the right to cwn propcrty; the r:-grrt to soclal'"""r"fty;
the right to work an,J. protection frorn unemployment; the right
t9 * adequate stand.ard of living; the right-to ed.ucation;
the right freely to participate in the cultural l-ife of the
community; and the right to protectlon of scientific, literary,
17or artistic works. Simply to mentj.on some of the se rights
conveys an ide;a of the very rcal problems involved in their appl1cation.
macle 'bo
t::anslate the Universal Declaration into
The two
trcaty form provecl exce]ed.irigly onr:rous anct difficult.
Draft Covenants on Human Riglits dealing respectively with civilancl political, and with economic and soclal righ'bs a.Te still awaitlng completion. Onl;r the Preamble and Article I of the Convention on Freedon'i of Information lnitiated in 1948 liav'e so far been
approved by the Third Commi'btee of the General Assembly and
another Converrtion concerning Frecclom of fnformation has so f ar
failed. of ratification.l
Sonne of these difficultles are due to
the unrosolved question of the extent to whlch individ.ual human
rights, and. particularll' economic and social rights or objectives,
can lend. themselves to treaty action. More importantr however,
B'1
.
Efforts
the discusslori of these 1egal instruments has reva&led some of the
most basi-c differences of opinion concerningrrthe real end of manrr
to be found. in this age of acute ideological conflict.
BB. Dj-fferences in the interpretation and application of
the rights enu.meratecl in the Universal Declaration of }Iuman Rights,
and in some cases enibodied 1n international treaties, have served.
to confirm the lack of agreement on their meaning. Wh1le the
principle of self-determineition was recognised in the Charter and.
figrires in one of the articles al-r'eariy approved for lnclusion in
the Covenants on I'Iunun Rightsl self-cletermlnation remains a
problem in large parts of thc world, Compla,ints about discrlmination and the violation of inrlividual humatt rights are not
confined 'bo any contincnt or gtoltps of countries.
'Except for the proposcd Convention on Frecdom of Information,
which touehes on one of tire most controv'o'rsial issues 1n the
contcmporary wor1d, single-purpose Conventions and Recommendations
have flarecl botter than the attemn'l,s at comprehensive ins'truments
such as the Convenants on Human Rights. The United Nations
Appraisal lists five Ccnventions completerl urrder the aegis of the
Uni'bed. Natlons and in force, dealing with such natters as
1
political rights of women, national-lty of marrled women,
statuS of refugees. Thc J.1.0. has succeeded in
complcting Conventions on such lnrportant human rights matters as
freeclom of asSooiation, equal pay for equal work, abolition of
forced labourl and discrimination in respect of employment ancl
genocide,
slavery,
anO.
occupation,
-38
89. The controversies wliich have arisen over these issue$
the divisions amr..,ng the iViembers of the Unlted Nations which
they have revealed are mat'Lers of g::ave concern which cal-l for
careful revlew and. pcrsistent efforts to flnd solutions. As
stated in the openlng peiragraph of the Universal Declaration
t'recognition of the inherent clignity and of the equal and
inallenable rights of all members of the human family is the
foundatlon of freedom, justice anci peace j-n the worldrr.
and.
90. There is one aspect of this general problem that
d.eserves special attention. One of the greatcst darngers in
d.evelopment policy lies in tlie tendency to give to the more
material aspects of growth an over-ridlng anrl disproportlonate
emphasls. The end. may be forgotten in preoccupation with the
means. Human rights may be submerged, and human beings seen
only as lnstmrnents of production rather than as free entities
for whose welfare and. cultural advance the increased, productlon
1s intend.ed.. fhe recognition of this lssue has a profound,
bearing upon tht,' formulatj-on of the objectives of economic
development and the methods employecr in attaining them. Xven
where thorc is recognition of the fact the.t the encl of all
economic development 1s a social objectivel j-.L'. e the growth
and. well-belng of the i-ndividual i-n larger freeclom, methods of
development may be used. rvhich arL, a denial of basic hurnan rlghts.
9l-. In this context, the progress of teehnology and
mechanisation ean be vier,,red both as a threat to non-material
values and the cultural heri'tage of ttre past and as an opportunity
for the development of the cultural riclies of advanced and
Iess deveJ-operl countries alike. 0n the one harrd., there 1s a
danger that 1n the clrive for moderiiity, o1d. valu.es that contribute to a fullcr life may trecome erooed or be clisearded rather
than adapted. to moclern con<iitions and transformecl into new
cul-tural patterns. 0n the other hancl, a greater ease of 1ife,
more leisrure, ancl modern communications potentially make for a
wid.er participation of all the people in cultural activlties and
for a greater exchange of cultural va,lues betvrccri clifferent
cultural groups. To avoicl the dangers arid to iake ad.vantage of
the new opportunities, or5pnisecl efforts are required. for the
preservation of cultural treasures, the ciiiaptation cf o1d nonmaterial values to mdern insights and conclitions, and the promotion of a wider participation of indivicluals and Sroups in
cultural activities and exchanges.
trt.
TI{E CAIL FOR I}'I'IERNATIONAI ACTION:
OPPORIU}TITlES AI\TD LIMITATIONS
92, From the preceding analysis, it is evident that the
economicr social ancl relatecl needs and problems of the contemporaly
world in this era of rapicl change are not only of vast proportions but also extremely complex. They call for unprecedented
.-
19
efforts. Action to cope with these needs ancl problems is
pri-marily the responsibility of incliviciual coun'tries, their
peoples and their governments. In a world of national sovereigntles and clomestic jurisclictions, international organisations
cannot take the place of national governlaents. This places
limitations on the scope and resources of the inter-governmental
orgapisatlons, llmitations that must be recognised if thelr work
1s to be effective. To overlook these limitations and expect
too much of the lnternational organisations ean only result in
disilLusionment.
93. These considerations canriot, however, detract from the
of international co-operative action. fhe extent to
whi-ch this action has grourn in the short span of 15 years since
the United Nations was founded is itself proof that it corresponds to need.s which are only too reaI.
There can be no d.oubt
that the call for multilateral action is becoming more vocal and
urgent each yearr &s the evolution of the world economy and
world society throws up more and more problems demei,ncling international. attentlon and as more and nore und.ercleveloped cou:rtries
swing into the phase of d.eliberate and systematic effort at
development, seeking lnternational advice and aj-d. in the process.
importance
I.
Enlarlqed oppor-!4.18!ies
94, Opportunltiesr &s distinct from nee<ls, for i-nternational action are also lncreasing. Ours is the rrfirst age since
the dawn of civilisation, some 51000 or 61000 years back, in
whleh people dared to think it practicable to make tire benefits
of civilisation avail-able for the vihole human race".95. Programmes of technlcal assistance have opened up an
era of vastly enhanced opportunity for international action.
The opportunity has arisen in part because modern technology, as
a source of wealth - unlike land and natural resources - can be
shared and yet not lost to the original possessor. By helping
Iess developed countries acquire the technologj-ca1 capacity for
greater production and" gre'ater welfare, the international community can approach the problem of econorcic and social need in a
positive way and greatly extend its rante of action. Na.tions
have, of course, borrowed and. acLapteci tcci:nlques from each other
slnce the beginnings of civilisation,
But lt was only toward
the niddle of this century that the process became institutiond.lised at the international 1eveI, as a delibcrate and. systematic
means of red.uclng po-erty. The basic principle of international
I
for
Arno1d Toynbee, rrNot the Age of Atoms but of Yfelfare
A11rr, New York_liqle s, IVEtgazine Section, 21 0ctober 1951.
.
-40
action for economic and social d.evelopment is thus not transfer
of wealth, but transfcr of the capacity to create wealth and
well-being.
96. Increased opportunities for international- action also
arise from the trend towards greater government responsibility
for the promotion of economic and l;ocial welfa-re and. the maintenance of human rights.
The United i{ations and t}re specialised
agencies, which are organisations of governments, cannot fail to
be affected by thls expansion of gc>vertrrne;ntal responsibilities.
Many governments are con'scious of the assis,tance which intergovernmental organisations can give them in the clischarge of
their broad new responsibilities, and of the advan'bages of obtetining assistance through those organisations. The role of th.e
United iVations organisations assumes particular importance 1n
the case of newly indepenrlent countrles v,rhich are 1n process of
establishing. the policies and machincry of their government.
97. Finally, incrcased. opportunities for constructive work
d.erive from the very de'velopment r-rf establlshecl inter-gover:rmental
organisatj.ons. Deliberative boclies of governnent rcpresentatlves
ancl expcrts have gained cxperience in gUlcilng tlie clestitries of
the inter-governmen-i;a1 or'p'.'anisations and in maklng them more fu11y
responsive to the neects of their merobers. Pcrmai:ent secr.etariats
have been establlshed., which in thelr turn have gained experience
and. accuutulated information. Action bodies have been set up whlch
have acquired. skill in opez'ating practical pro€jramme s, lJecentralisation of machinery has brougirt the inte::national organisatioris closer to the grass rcots ar:cl has given them a better understand"ing of problems requiring international efforts.
A11 this
makes for fr"rllcr use of interna.tional fecillties.
2.
Bu[gi4g-9l_S-!regs]h
98. The guid.ing princlples of the United Nations and the
specialised agencies must be to carry out ln the economic and
social fields programmes for which these or.ganisations are peculiarly equipped tc ,br-ril-d on strengthtt. rn vlew of the
rnagnitude of the needs, ttre grcwing demands maile upon intergovernmental organisations, and the scarcity of resources
available to them, strict prioritles have to be imposed.
99. To establish prioritics, it is necessary to take into
account not only the urgency of needs and the opportunities fbr
aetion. Three furthcr crlteria of special weight neecl also to
be applied: tirat the proposed action 1s technically sound in its
own field and at the same time strategic in promoting over-all
development; that international actlon is justified, in that thc
L1
desirecl. results cannot be acirievr,-.d withi.n a reasonablc time by
ur.rassisted national action; and that such action wil} assls;t
and stimulate national action so as to cnsure that the international effort procluces the maximum resrr.lts at the national or
regiorial Jevel
100. The ma.jor rnethod-s of international action have been
mentioned. in onc way or another in the carlier discussi-on. They
can now be set forth in a more orclerly fashion uncier three general
headings: the compilation, analysls, ancl cliffusion of esscntial
informatiotr; the formulation of policies, stand.ard,s and regu)-ations; ancl the operation of act:-on plogri:uumcs cf dlrect asslstance to individual countries, or groups of countries or inclivid.ua1s (including technlcal assistance, assistance in rnobllising
finances for development progrernmes, disaster rclief, and
humanitarian aid to refuger:s). Some of these activities and
methods have loug been charactcristic of the work of inter-governmental orga.nisations; othcr:s are of more recent ciate.
(i)
Research aird lnformation
101. Slhile iclcal-Iy it migiit be consldererl desl::able for
interna.tional organisations to irrvest large sums in important
baslc re search in physics, biolr:g;y, irsJrchology, economics, etc. ,
in practice this has not been for-rrrcl feasib-l-e or advisable. fhe
ancl the research can be
large sums required are not avail-ab1e'bhat
are equipped to d,o it
carrled out by national institutions
unless there is someth.ing iri the nature of the problem that requires an internationr:,I anproach,
102. Occa,sionally the rcscu-l'ces neecled for basic research
surpass the capaclty of national irrstituticins even in more
oeveloped countries, or tire rislt cf failure which is lnherent in
any research project is such. as to make a sharing of investment
desirabJe. In such cases intcrnational bodies can play a valuable
role by orga.nlsing pooled research, a,s has been uemoristratcd in
the case ,:f tfrc nuropean Organisr:.tion for Nucle ar Research ( CpnU) ,
for cxample, in re scarch on func1a.mental nuclear physics.
LO1. Inter-governmcntal organisations unciertake researcjr
and
the colleci;lon of informa'i;i-on on topi-cs that by their nature cannot
for one reason or another be studied adequatcly witlti-n a slngle
natj.onal framework and rccluire an intr,,rnational organisation of
data. Thus weather slstcms and. meteorological phenomena transcend
national bountlaries (W.M.0. p)-ayed iln important part irr the orgerrlisation of the Internatioiral- Gcophysj-cal Year and of rescarch based
on the data secnred ).
Similarly the stucry of the living and
othcr resources of the occans can best bc accomplished blr co-of"dinateci internatjonal effort, and the:re are a rrumbe:: of economic
and social problems where a comparative iriternational- approach (e.g,,
in the epidemiology of certain oiseases) me,y be necessary to
s
cientific
understand ing.
42
104. Certain research and laboratory activities may al-so be
carried on directly by inter-governmental organigations whcre there
is a necd to cstablish clata directly relating to the opcrations of
these organisations. All of the organisations eni.,ir€{e in rescarch
in this respect, mostly in the forrn of the compilatlon ancl analysis
of published" data and reports, plus certa.in field surryeys.
I.A.E.A. has established a laboratory, however, to check nuclear
materials, manufacture radioactive stanclards and provi,ie hcalth
and safety scrvices; the United Nations has a laborat<)rir squipped
to aseertain the country of original proclucticn of selzed opium;
the !/.H.0. inf1uenza prograrrure utilises two internati,.-rnal laboratories backed by an extcnsivc rletviork of natltrnal laboratories.
105. The internaticnal orgariisrtic;ns may give assistance in
rescarch to less <icvcloped countries or regions on problcms that
are crucial to their economic and social development, such as
problems associateci llittr tropical or aricl zone conditions, but on
which not enor.rgh r(-;sea.rch has been done to datc. Finalfy, there
arc various types of information on such rri:"tters as intcrnational
trade, world supply of and dcmand" fcr fuel encrgy ano specific
foods, world industrlal production and data on thc; j-ncicrence of
various diseases, etc. which indiviriual countries need for their
o$/n policies, but wtrich they cannot collcct effectively and
efficicntly, acting as individual nat j-ons; moreover, if they
should act inciividually, there would be tremendous duplication and.
waste of effort.
105. Even though direct and su,;tairred research by lntergovernmental organisa.ti.r;ns on basic scientific problems is the
exception rather than the ruIe, these organisations may undertake
to stimulate and dt:velop needcC basic rcsearch by the process of
subsidising selec'berd projects, providing assj-stance in the planning
of rescarch undertaklngs, helping to build up loca1 institutcs
engaged in rescgrch, supplying certaj-n tools for re search (international surveys of recent progress in given su.bjects, etci ), or
by giving subsldie s to non-governmental orgpnj-sati-ons. IJ.ILE. S. C.0.
while employing aII of these methods, uscs that of subsiciics
rather more extensively than d-o tire other organisa,tions. I.A.E.A.
makes particular use of researclL contracts to stlmulatc scientific
developnent in fiolds such as health and safety in connection with
lonizing radiations whcre more data arc required to enable the
agency to fu1fil 1ts regulatory functions.
107. Perhaps the greatcst contrlbution intcr-governmental
or6pnisations can make to the advance of knowledg,, and ::escarch 1s
the ciiffr.ision and cxchange of inforuiation through conferences,
expert committees ancl seminars, publicatlons and clearing-house
functions, includ.ing the facilltatj.on of the internatlonal flow
of publ-ished scientiflc d.ata Els in the form of abstracts and
.
+1
bibliogra"phies. Moilern science has beeome so prolific in research
publications thatr &s suggestecl carlicr, the problem of disseminating tlte information efficiently and economically, so that criffcrent nations may have the benefit of lt, threatens to becorne
l:,Imost over.uhelmi-ng. Inte:mertional organisations operatc cn
the prirrciple of the right of all to scientific knowlcdge.
108. In order for infcrmation to bo exeha,ngecl ancl converted
into a worl-Ct fund of knowlcdge, stanila.rdisation of terms, concepts
ancl categories is necessary.
Mrrch international effort gocs into
the standarclisati-c,n of basic sta.tlstlcs such. as census statistics,
This is tied in also with the I-nportant function of promoting
the establishment of basic si;atistics and othcr cia,ta in the less
developed countr:ies whcre they are lacking bu.t are nueded for
national developncnt progranmes. Assistance is given in the
establishmert of the nmchincry for col.Lecting and processlng data.
fhe methods used to this end. take the form of technlcal assistance,
of which nore will be said below.
109. Fina11y, the formulation of international policies
and programmes must itself be based upon the compilatlon and.
analysis of available data.
To this enrl, the United Nations and
the specialised. agencies publish an extensive series of regular
reports and surveys on economic and social- conditlons.
(ii) Policies
li-els
110. The harmonis.rtion of national economic and social
policies in the context of broad international policles is obviousllr a matter of hi.gh priority.
This is one area, holvever,
whe::e progress has been slow and the results often disappointing,
as will be emphasiso,d later in this report. ft has not proved
easy to develop methods of broad international policy formulation
sufficlently effective to cope with the complexities of intcrnational economic relations, complicated as they are by politlca]
difficulties and icieological tensions. Thus policy formi.llation
in representative international conferences and bodics frequently
does not go beyond the confronta'tion of views, the clarification of
differences, and the passing of rc.solutions which, &-b times, cover
up differences rather than resolve them. There are, of course,
exceptions such as th.e unanimous policy to assign first priority
to the developrne;nt of the Ii:ss-cleveloped countries and broad agreement on certain opcrational progranmos (see below) adop.ted to
assist in such development.
It is also true tlrat the d.iscussion
of an issue at an international conferencc may create a climate
of opinion out of which national policy decisions arise, adapted
Slc.sgs-rqs*-esg-&egrl
s
to this climate and hence to eac':h other. Nevertheles.s, on a
number of major issues, progress at the international level must
be described as disappointing.
1L
1l-1. By conl,rast, in ns.rrcwcr and [enera1ly nore technical
fie1ds, lntergovernnental or..:enis,'rticns have establlshed a
renarkable record in thc fornu.lati.rn ,tf lnterna.tio:ral standards
in the forrn of conventions or of reconmeridatl.:ns. B3r j-959
f.1.0. had adocted 114 conventicns and 1]2 recomnendaticns covering
such area.s as conditions of en'plolrnent; the enoloyment of chil-rj.ren,
I/oung persons and vu,omenr industrial health, safety and welfare;
social securlty; slavery anr) f orce d lab.ruri anc'l frcedrrn of
association. Sor:ne twenty of f .I,.0. rs Conventions ere 1n force
for substantially half the menberskrl'o of the organisprtion and the
total nuraber cf ratlfications is approaclring the tlvc thousand
nark. Examples of a different tyne arc th.e Universal Copyright
and the fnternational C,:nveniion for the Protectlon cf C,,:ltural
Property in the Event of Arned C.:rrfl.ict, ini biated by U.N.E.S .C .0.
112. Perhaps the olclest ancl simplcst forn cf international
action concerns regulatii;ns ancl contr:ls on nat'hers that invol-ve
thc orooelng of lnterna.tional frontiers. Traditlonally, they
deal with probleias - for exanple, the rllicit tra.ilfj-c 1n drugs that cannot be satisfactorily resalved unl-ess obligations of a
binding character are accepted by a larrge numbcr of countries.
Other natters sirnilarly clealt with are the preventlon of transilissj-on of dlseases, the developrient of standards i.rnd coirtrols on
the shipnent of racliation ilaterials anC the disposa] of nucl-ear
waste, rules for the treatrnont c.f nationals who cross frontiers
such as seafarers and migrants or nierant workersr or general
frontler facllities.
These regulations and controls are either
enbodlcd in international trcaties subject to ratiflcation, or 1n
rcgulatlons that are bcth more easily establi.shed and more easily
changed. Y/.H.0.1 to r,rention one exanple, has the power uncler
its Constltution to adopt and ane:rd inte.rnational- sani.tary regulatlons, whlch becone effectlve fcr any ncnber country of the
organi-sation that does not reglster its disaporoval withj-n a qlven
tii:re. f .A.E.A. is requi-red t o establish safety regulations tnat
are co;'rpu.lsory on any gc'vernincnt rrsing its assistance.
-]L3. Prccerlltres f or thc enf crcem,:nt of standards and regulatlons;lost often takc the f,rrn of an oirllgation to subrnj-t periodic
reports providing statistical- or factual lnformatj-on. r.1.0. has
gone furthest in developing a proeed-ure cf systernatlc supervislon
of the effect given to its stanrlards by ratifying countries.
This procedure, ensuring publicity throu.gh repording, publlcation
and debate, provides an effcctive r:ieans of obtaining observance
of obligations freely entered into by contractlng States. M6re
strlngent enforcement measures ilay be proviried by the establlshment
of conplalt procedures, arbitration, referral to the fnternational
court of Justlce, orr 1n the case of r.A.E.A,, the withholding of
the supply of flsslonable materials.
(
i-i-i )
9psra!--ggaL3ro:reritgs
114. The technical assistance prograrxnes, the chiefl o'perational programnes of the United Nations and the agencies pa::ticipating in {fre pre sent appraj-sa1., are the outstanding development
1n lniernational econonic ancl social actlon since the formation
of the United Nati-ons. Substantia). funcls are being made avail-able
for technical assistance activities by nost of these agencies out
of their regular buclgets. Even larger suns at prescnt about
$ZZ r11llion a year - are derived for the sane purposes frora the
Expanded Progrlmrae of Technlcal Assistance (E.P.T .A. ) , initiated
in 1950 and exclusively financed bJ, vohintary contributions.
For f959 no less than ei6hty-three eotrntries volunteered such
contrlbutlons. Tabl-e III sh.ovrs the sherre of yearly prog'ramne
funds nade avalIable under E.P.T.A. to the icarticipating organisatlons. Over the years, asslstance has been extended to 140
oountries and territories.
f15. The essence of the technj-cal assistance progralrr{es is
the transfer and. aclaptation of knowleclge and techniques fron
countries nore advanced 1n a particular fleld to those less aclvanced
but which need such knovrledge and techniques in their bid for
The najor field-s
increased production and hi.gher levels of living.
of activity are listed in Table IV together with the costs of
They cover practically
programtres carrieC on in these fields.
the entlre area of econoni-c ancl. social develoDrilerrt.
116. Even so it nust be noted that it has not been nossible
for the organi.sations participatinq in E.P.T.A. to keep pace with
the r.rounting nuniber of requests for technical assistance reqr.rests
which appear technically well conceived ancl to which governments
attach piiority - ancl after a cLecade the probler: of the iirpanded
Programtre itself continucs to be predoninarrtly a financial orle'
117. The method.s eiirployed in technical- assistance are sufflciently we}l lcncwn to require nc elaboration here. fhe technlcel
assj-stance activities tend to be clrlsely inte5;rated with the
regu1ar activltie s of the organisations . Llnrler E.P.T .l! ' alone ,
noie than Br0OO experts, technicians and traini-ng personllel have
been 6ade available slnce 1950 to the l-ess developecl countries and
nore than 14rOOO fellowships grarrtecl to their na-tlonals, mostly for
study and training abroad (see Table VI). Numerous short and lonStern trai-ning courses have been organise c1 in the under-developed
countries thenselves in co-ol)eration with internati-onal personnel,
and denonstration centres and pilot projects have been set up in
larg1e numbers.
-46-
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The recent creation - also on the basis of voluntary
contrlbutions from governments - of the new Special Fund within
the United Nations promises to €pve new impetus .and strength
to intornationally orga.nised technical assistance. The F;.nd.
was set up to offer technical assistanee in clepthp i.€. it is to
concentrate on a limited number of major pl'oiects of key Lmpor-
1IB.
tance to the countries concerned. In 1959, its first year gf
exis'bence, the Fund. alloeated a total of $11r911r910 covering
4L projects in 26 cowitries, as vrell as two regronal proiects
(one each for'CentralAmerica and South East Asia), and one'interregional project for eoun'tries in Africa, the l{iddle East and Asia.
Emphasis is placcd. on assistance in advanced surveys of natural,
resources and. d.evelopment projects of the pre-investrrrent type
and on aid in the creation of permanent traintng centres and
institutions. In view of this concontration, the Fund is in a
better posltion to provlde equipment than has been possible under
the Expand.ed Programme of Technical Assistance. It is the poliey
of the Furid not to enter upon any project unless it is assured of
eounterpart fr.mds mad.e 1oca}Iy available,
119. There is general recognitlon of the fact that the less
developed. countries are badly in need of finance capital, and
that in view of their low incorne levels and. consequently l-imited
ability to save, the formation of d.omestic capital is bound" to be
slow. None the less, neither the E.P.T.-A. nor ti:.e Special- IUnd
is authorised or j-n a position to finance capitaL investments.
There have. becn, and continue to be, strong pressures for the
establishment of a United. Na"tions economic devel-opmcnt fund ( sueh
as ttggNppntt ) and a number of rcsolutions have been passed looking
towa.rd srrch a fund. fhe major potential contributors, however,
until now have preferred to extend financial aid in the form of
grarrts or loans on a bilateral basis or through such multllateral
agencies as the International Bank for Reconstruction and Development, the In'bernatj.onal ivlonetary tr\.lnd (in the case of temporary
payment difficultles), the International Finance Corporation, and
through regional instltutions not part of the Unitcd Na.tions
system. As noted in the Introduction, these institutions are not
participating in the Firre-Year /tppraisalsr. and the present consolidatcd" report eannot cover tire subject adequately, although more
will be said on it at a later stage. For the time being, it is
obvious that this is not an area where the United i[atlons is
operating from a position of strcngth. As fa.r as it has dealt
directly in any practica.I way with the problem of financing, this
has been largely confined to analysls of the need for capital
investments, to teehnical assistance ln the mobilisation of
domestic rc.sou-rces by way of improved. -fiscal polieies and.
practices, and to the promotion of the flow of foreign lnvestment,
public
and"
private.
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120. A final group of opcrational functj-ons of the international organisations are of a directly humanitarian nature.
One such function is the provision of emergeney aid and refief.
Floods, famines, earthquakes, suoden health problems, Iocust
invasions and. other d.isasters that create situatj-ons beyond the
capacities of the countries afflicted, have called for and re:ceived
j-ntcrnational assistance from inter-governmental as r,vell as from
non-governmental organisations
.
LzL. [he General Assemb]y created. the United Natj-ons Chilin 1945 as an inter-governmental fund to give emergency relief to ch1ld.ren of war-devastated countrj-es. Since
1950, however, its terms of reference Lrave been to assist in
the long-term improvement of the condition of children in the
und.er-developed. countries. The Fund. makes grants-in-aid,
mainly in the form of imported supplies and. training assistance,
to country projects for improvement in the cond"ition of childrent
with particular emphasis on health and nutrition. Aid is given
in col.laboration with the specialised agencies that have relevant
d,renls tr'und
technlcal- competence
.
L22. The scale of ttris operatiorral programme may be
illustrated by the all-ocations to 159 proiects approved. by the
Board during L9592
Basic maternal and child v're].fare servlees
$US
I\{alaria eradlcation
B
Other disease control campaigns
2
Supplementary
child
feecling
2
Milk and other food processing
in
thoJrsanos \
4r795
(
'13'
'14L
rgo5
3,G52
Nutrition ed.ucation ahd. activities
Emergency aid
B2I
_L-ru
Total
2+,O9L.
L25. The Fund,fs assistance is given in ways which will
stlmulate and. support governmental policy and action for the
provision of permanent servlces for children, and increase their
budgetary provision for such senrices (tfre matching requirement ).
-52
of governments to the projects assisted by the above
aLlocations are estimated by U.N,f.C.E.F, to have amounted to the
equivalent of $70 mi.Ilion.
L24, Intermittent political crises and confllcts have
created multitud.es of refugees for whose maintenance or asslstance
the United Nations has assumed. responsibility, acting through
such organs as the High Cornmissioner for Refugees and the Unlted.
Nations S.elief and. lVorks Agency for Palestine Refu.gees in the
Near East (iI.N,R.W.A,). While efforts are made to resolve the
problems of the refugees as rapidly as possible, in sorne. casesr'
and particularly in the c&se of the Palestinlan rcfugees, these
problems have continued for years without effeetive solution,
calling for continued tnternational aid.
Commitments
-51
PART
II,
PRoeRAMME TnENDS,
L959-t954
L25. The Part that follows is not an easy one to read,
nor was it easy to write, because of the wid.e ra"rlge of agency
activities which had. to be examined in an effort
determj-ne apparent future trends. It had. been hoped that
some way could be found in this eonsolidated. report to avoid.
und.ue involvement ln detail, but it must be acknowledged that,
so far as Part II is concerned, it has not been possible to d.o so.
prograrnmes a.nd
to
L26. While the d.irectives given by the Economi.c and Social
Couneil to the Appraisals Commlttee made it clear that it should.
concentrate on major trends, the Committee has been obIlged., 1n
,oractice, to 1nclud.e in its analysis a substantial a.mount of
detail relating to individual programmes or projects considered
by the organisation concerned to have a partlcular significance.
This overburden of speciflc references to programmes and projects
has added to the difficulty of setting out, with precision and.
cIarlty, the major trend lines for the future.
L27. Most of the detailed. illustrative material lncluded. in
this Part is drawn directly from the seven appralsals themselves,
although additional- details were submitted to the Committee by
the participating orgarrisatlons. As a general rule, it was
thought to be desirable not to go beyond what the organisations
had said about their own programmes in their appraisals. One
further difficulty encountered ln this connection is ttrat, 1n
many instances, the appraisals express the interests or concerns
of the organisations in certaln fields, without, however,
ind.icating how much substantial work is planned i-n these fields
in the next fi-ve years.
128. It should. be emphasised that what j-s attempted here
1s not, of course, a d.etail-ed descrlption of agency activitles
for which reference should rather be made to the ind,lvidual
appraisals - nor even a^n agency-by-agency sutnmary. Instead,
a functlonal approach is used, although inevitably much of the
d.lscusslon also follows along organlsational l1nes since the
organisations are, in fact, distinguished mainly by their
functlons. This functional approach call-s for a grouping of
data and materials by problems and problem areas. While sueh a
pattern is difficult to carry through - partly because the
appraisals are quite dlfferent in organisation and approach - it
has the advantage of showing lnter-relationships among the
programmes of the separate agencies.
)-29. Finally, it must be pointed. out that the organisatlon
of subject matter adopted in this part of the report is more
sultable to the work of some agencies than of others. The
aetlvities of EPTA, the Special Fund and UNICEF, for example,
appear under such a variety of headings as to nake it difficult
to see their total lmpact; those of I.A.E.A., which are
cond.itioned by the fact that atomic energy is still 1n an early
stage of development, also d.o not fit read.ily lnto the pattern.
-54A.
STATISTICS, SURVEYS AND RESEARCH
130. As noted, the compllation of data on €m lnternatlonal
basis j-s one of the major activities of the inter-govern-mental
organisations. Thus, publlcation of statistlcs on economic and
soclal types is a continuing frrncti-on of these organisations.
This in.cl-udes not on1;r special studies but also a number of
regular statistical series. For example, the United- Natlons
now publishes on a reggular basis: an annual- Statlstical Yearbook rrhlch eonteins coilprehensive data ccvering a large number
of economic and social fie-l-i.s i a Demographic Yearbook containing
detailed demographic statistics; a Yearbook of International
Trad.e Statlstics; a Iearbook of llational Accounts Statistlcs,
which contains details of the national accounts of some 70
countries; and a report on World. Energy Supplies, gi-ving d.ata
In addi-tion to these
for some 150 countries and territories.
issues
i{ations
publications,
the
United
a Monthly Bulletin
annual
social- subjects
economic
and
variety
of
Statistics
covering a
of
Trad.e
Commodity
quarterly
report
on
of current interest; a
Statistlcs
Report;
VltalStatlstics; a quarterly Population and
jointly
(published
with
and a Direction of Internatlonal Irade
the I.M.F. and the I.B.F..D.) which comes out in 11 monthly issues
and one annual- lssue. Current econonlc statistlcs are also
ineluded in the economlc bul-letins of the reglonal economic
commissions, and a number of periodlc statisticaL bulletins are
also published by them, especlally by the Economi-c Commission
for Europe (E.C.E. ).
131. I.1.0. publishes a Yea"rbook of Labour Statistics and
a Statistical Supplernent .bo the monthly International I,abour
Review. F.A.0, issues four statistical yearbooksr oh Agricul*
tural ?roduction, Agricultural Trad,e, Fishery Statistics, and
Forestry Statistics; a ilorrthly bulletin of Agricultural Economlcs
and Statistics; and extensive statistical tables included in its
annual report, The S'bate of Food and. ltgriculture. U.N.E.S.C.0.
issues a ',tiorLd Survey of iiducation every three years. -W.H.0.
publishes Annual Epidemiologlcal and Vibal Statistics, a monthly
Epid.emiological and Vita} Statistics F,eport, and a weekly
Epid.emiological Record,. I.A.E.A. lssues directories of radioisotopes and nuclear reactors.
L32. The United. Natlons Statistical 0ffice and the
specialised agencies eo-operate extenslvely under long-standlng
The llnited Nations
arrangements 1n statistical activlties.
Statistical Yearbook contaj-ns appropriate data provided by the
I.L.0., for example, while I.1.0. ob'bains data from the United.
Nations and F.A.0. for inclusion in the Yearbook of Labour
Statistj-cs. Several of the specialised agencies assist in the
compilation of statistical data for the biennial United Nations
reports on the world soci-aI situatlon, and for the annual world
economi-c survey. Another recent example of inter-agency
co-operation is found in the Worklng Party on Statistics for
Socla] Programmes, which is developing a handbook for family
living
stud.ies.
133. In general, the prospect for the future is continuation
of the current publications, The United iVatlons Secretariat,
however, has been requested by the Economic and Socia1 Council
to publish rrshor'c-term ind.icators on economic changerrl there
is also a demand for detailed statistics on ind.ividual
commod.itles; aniL a "Compend.ium of Social StatisticsI is
envisaged for l96L vrhich may conceivably become a regular
publlcation ever}, fcur years in conjunction with the Report on
the iiorLd Social Situiltlon.
l-34, Requests by countries for international d.ata that will
all-ow them to evaluate their nationa.l posli;ion and prospects
have exceed.ed. the ca.pacity of ttre lnterna-blonal statistical
service, ae.cord.ing tc the llnited Natiorrs appraisal, ald it has
been necessary to concentrate cn oata for nhich the demand seemed
to be most nearly un.lversal.
135. The work that has been d"one on the establishment of
international statistical stand.ards will- be coirt:-nued through
revisj-ons of exlsting stanuards sueh as those for industrialcensuses, national accor-:nis, capi.tal forrnation and. tracle
classificatlonsl exl;ensi,cns will be made to certaln new flelds
such as statistics of wholesale pri-ces and enterprises (U.N.),
census of housing (U.tU. ), certain educational- statistics
(U.N.E, S.C.O, ), industrial injury stati-stics (I.L.0. ), statistics
on the scope of social secrrrity (I.Ir.O.), hours of work statlstics
(I.L.O. ), anO causes of death and mcrbid.ity statlstics (W.H.0. ).
Inter-agency co-operatlon will be contiirued on standardising
the measuremen'o of various aspects of levels of living.
l-36. A major purpose of lnternational statistics work is to
help to bu1ld up natlonal statistical- ser.rices. The publicatlon
of statistical data and reports 1n itself may serve this purpose.
In ad.dition, technical assistavrce has been given and will- be
intensified in the period under review through experis, fellowA major pustr 1s planned to develoP
ships, afld traiiring cen'bres.
for
Africa
and. to complete a statisticalservices
statistical
Considerable
work has already been
that
survey of
continent.
done in d.eveloping statistics in the other regions.
13?. fn general, the period und.er review promises to witness
a greater emphasis on statistics required. for national prograrnmes
of economic and social development, includ.ing short-term and.
long-term projections; resource surveys (especially rxrder the
Special Fund ); and teehnical manuals and handbooks dealing with
the maln subjects and method.s of economic a-nd social statistlcs.
L38. Closely related" to the regular statistical publications
of the United Nations and specia,lised agencies is a series of
regular surveys of economic and social conditions. While the
statistlcal publications are primarily of d.irect interest to
Governments, the surveys serve to asslst in the formulation of
international policiesr &s well as to lnform Governments.
Publlcations of this kind. are the annual world. economic report;
-56
the biennlal world social reports (whlch alternate between surireys
of conditions and surveys of programmes); the trlennlal reports
on hrrman rights; the annual economic surveys of the Economic
Commisslons for Asia and the Far East, lati-n Amerlca and
E\ropel; the annual reports of the Director-General of I.1.0.1
the F.A.0, annual State of Food and Agriculture; the W.H.0.
report on the World Health Situation. the pattern of these
publications promlses to remaj-n more on less the same for the
next five years. By and Iarge, there is a tend.ency to
concentrate on particular subjects j-n successive surveys of a
series, in addj.tlon to giving a eomprehensive coverage of world
trend.s in the f iel-d in questlon. Thus, the world economic
survey has a tentative programme of concentration on various
selected topics in the forthcoming years. .A special review of
the world. economlc situation atr s&y, five-year intervals is
being contemplated..
139. A notable feature of tI:e appraisals ls the extent
to which a number of them foresee substantlal increases in their
actlvities ained at the promotion of research ( some of the
d.eta1ls will be made evident in later sections of this part of
the report). U.N.E.S.C.O. anticlpates a eonslderable increase
duri.ng the period 1960-64 1n asslstance to research in the
natural sciences (particularly under E.P.T.A. and the Special
Fund), alld also lnCreases in assistance to research in the soclal
sciences and in hr.manistic studies. fn the natu-:r.aI sciences,
one of the major projects of U.N,E.S.C.O. eoncerned with arid
zone research will- be termlnated 1n 1962 and 1ts place is likeIy
to be taken by progra.runes in the fiel-d of hrrmid tropics research,
biology and geology.
140. The United Nations has a se::ies of projected research
projects in lndustrialisation and plans to expand its research
relatlng to progralilning techniques and the formul-atj-on of
economic and social d.evelopment policies at the national leve1.
The United Nations also plans to explore the fleld of longer-term
economic projections in connectlon with the formulation of lnternational economlc policy. F.A.0. expects to step up its
ocearrography and marlne
actlvities relating to agrlcultural research; it proposes
a
major expansion 1n commodity trend studies and long-term
projectj.onsr &s well as 1n food consumption surv€ISr and wil-l
give more attentlon to economic analysis for agricuJ-tura}
planning. The proposed new I.l.O. Institute for labour Stud.les
*'l E.C.A. 1s plannlng to publish in the
'rEconomic Bu1letin
for Africarr periodlc reviews of current economic trends 1n
"C.frican countries and terrltorles, outstanding developments ln
economic and social policles and repercusslons on African
economies of policy decislons taken by Governments of lmportant
trading natlons outsld.e Afrlca.
-
En
)t
w111 presumably lead to an increase in rgsearch, uhich has always
W. H.0.
been L part of- the regular activity of that organisation,
has already embarked reeently upon an intensified programme of
nedical rebearch (see below).
.141.
of the newness of atomic energy, its highly
complex technology, and the fact that its plactical applicatlon
on a wid.e scale for the generatlon of power for peaceful
purposes has not eome about as soon as hacl. been hoped--, much of
tfr"-projected aetivity of the I..r.E.A, w111 coneern the promotion
of r6seireh. f.A,E.L. expectg to act aS a centre to promote
i.nternational research on problems such as those of reactor
technology, thermo-nuclear fusion, production of isotopesr lse.
of isotoiL'traeers, development and application of large radiation
sources ina tne efiects of radlation on man and his environment.
Isotopes and rad.iation are providing new tools for doctgrgr
biologists
agricirlturalists and industiiat chemists, physicists and
just
beginis only
aia tfreir contribution to economic well-beingj-n
ning; gfeat expansion is therefore foreseen this field. As
a mEins-of encoi.raging needed. research, the I.A.E.A, has lnitiated
this
a prograrune of res6ar6h contracts for indivj-dual proieets;
procedures
internatiogal
more
conventional
wiif Eupplement the
for proi6ting research. The Agencyts Laboratoriesr_whlle
destleed priilarily to provide olher serviees, will also undertake
Because
.
some research
of
L42, W.M.O. ls d.evelqping a progralnme on the use
way a
und'er
satellites for meteorological purposes, and has also
programme designed to encourage research 1n meteorolory and
hyclro-meteorology with particular reference to the arid zorLe
and the hunid tropics.
are raised
143. It is evident that problems of co-ordlnation
questi.ons
as
well
as
by these expansions of research activity,
rLgarding the criterla to be applied in d.etermining what Particular Iopics should be selected as subjects of research by
inter-governmental organisat ions
L44, To facilitate the
.
exchange
of scientific infomation
gaineit through research, the International Conference on
1958, called on
Scientlfic liformation,'held at Washington inj-nternational
other
the
with
U.N.E, S,C.O. , in co-Operatlon
organisationi in the 0nited Natipns fa.nily to take_- !!" lnitiative
in-lmproving means and techniques of exchanget _Whr-le far from
perfeit, nei techniques and new mechanical and electronic devices
hold out the hope tliat substantial gains can be made in the
near future in ihe international- ex-hange of knowleclge. Wlth
their help the clearlng-house activities, including abstractingt
whieh are either underlaken or promoted by the various intergo.rert*ental organisations, und.er the leadership 9f U.N.E.S.C.0.
5r in co-operation with it, are }ikely to grow not only in
importance but also i-n effectiveness.
-58l-45. Since much research is now being done by teams,
U.N.E.S.C.0. brlngs together leading menbers of national research
co-unci-Is responsible for the organisation of such teamsr so that
methods of oiganisation and problems under stud.y can be compared.
U.N,E.S.C.O. is co-operating with the United Nations and with
ilterested agencies in a survey of the main trend.s of research of
in the na.turil- sciences and the ilisseimination and application
survey should help
scientific kriowledge for peaceful end.s; thi-s programmes.
countries to plan thelr own national research
B.
1.
ECOI{OTiIC DEVETO}1VIEi.IT AND CO.OPIRATION
Rgsources DeveloPmqryL
(a) Natural Reso-urge$. ,includ'infi Fnersv RPsources
L45. An expansion of United Nations and speclallsed agency
is
work
anticlpated, in all nnajor fields of natural resources.
The interest oi the Special l,\md in resources Surveys and
d.evelopment 1s expected to ac1d. new responsibillties; somewhat
over 20 per cent. of the Fundts allocations in 1959 were devoted
to water, i-rrigabion and power surveys.
L47, The development of water resources is a matter of
concern both to tlie United idations and to a number of the
asSoCiated agencies. The United Nations iS concerned' in
particular with the economic aspects of water development and
use, such as the application of water resources to pcwer product1on, the indus'tria1 uses of water and grorrnd.water deveJ..opment;
it is rrndertaking or pia.nning studies on water costs and uses,
economic asitects of river ba.sin and. multi-purpose development,
ground.water developmentr s.rrrl d-esalination of sea and brackish
water. A r,liater Itesources Cerr.tre has recently been establlshed
at the United Nations, vrith the r.raln furrctj-on of developlng a
eomprehensive approach to water pi'ob1elis and a closer coordination of the work of the Uni'oed iVations and the specialised
Ihe Economic Comnlssion for Latin
agencies in this field.
America (E.C.T.l.A. ) will exneind 1ts work on water resources surveys
at the national arrd. sub-regional level, carried. out und.er joint
Sponsgrship with }).P.T.A. and in co-operation with W.M.0. and
F.A.O. The Economic Commission for Asia and the Far East
(E.C.A.F.E. ) will concentrate on disseminatlon of new technological lnformation and on trainlng at project sites, ild will
prepare initial studles of a number of rivers which by thei-r
nature can be developed only through i-nter-govertlmental
co-operatlon.
148.
of thc lower Mekong Basin is
now a
major undertaking in raulti-purpose resource development in whlch
the United l{atiorrs ( especiillly through E, C.A.F.E. e E.P.'I.4. and
the Speclal Fund) and several of the agencles are co-operating
with the four riparian Governments, whlch are also recelving
The developnent
substantial assistance through other
Governments.
-59
to
J,49. The Food and Agriculture Organisation w1ll continue
its work on water resources as an integral part of its
expand
programroe on d.evelopment
of agrlcultural resources.
The survey
ground.water
and appralsal of surface and
resources, the design
and constnrction of hyd.raulic works and the use and. control of
water on the land, trr partj-cular lmproved. irrigation and drainage
practices, are the main subjects fomlng the organisationrs
water resources prograrnme. A neiv direction has been given to
the work of F.A.O. by the real-isation that even where natural
ralnfal-l is sufficient for agrieulture, hlgher and. more eonstant
returns can be obtained by rneans of supplemental irrigation.
150. Among its activities related. to water questions,
W.H.0., in the period urider consideration, will undertake a
rrspearhead,[ approach to the problem of environmental sanitatlon,
with najor emphasis to be glven to commwrity water supply.
Water supply and use figures prominently in the field of urbanisation where several of the interested organisations, including
W.H.0., are establishing a concerted. programme. E.C,E. is
co-operating with W.H.0. in Europe in the field of water pollution.
I.A.E.A. has a programme in the prevention of pollution by atomic
wastes.
l-51. W.M.0, anticipates a marked increase of its activlty
in water resources development, and. has established a new
permanent Technical Commission for Hydrological MeteoroloSy.
The I.A.E.A. promotes research on the use of rad.ioisotope teclinlques for the study of the turnover of water between the
atmosphere, land and rivers, and also on their use as tracers for
sll-tatlon stud.i-es.
L52. .As indicated" in Part I the development of energy 1s a
key factor in industrlalisation and essential to the promotion
of economi-c and social well-bei-ng. International action by the
members of the Uirlted Nations family in thls field is concerned
with promoti-ng the most ratlonal and economic exploitation of
the various natural energy resourees. This actron rarrges from
surveys to assess energy resources ano to evaluate power need.s 1n
partieular countries, to cost comparlsons between conventj-ona1
and. non-conventional sources of energy, and to technical asslstance with respect to power production, including prod.uction from
non-conventional sources srrch as atomic energy.
I53. The development of energy resources is of partlcular
concern to the Unlted Nations and the International Atomi-c
Energy Agency; the World. I[eteorological Organisation and
U.N.E.S.C.0. are also invol-ved. In matters of global interest,
the united }latlons appralsal proposes to concentrate on (a) economic appralsal of energy resourees, and (f) analysls of longterm costs and prices of fuel and power. With specific reference
to underdeveloped countrl-es, s'brrdies wiLl be uadertaken of the
economics of energJr development, lncludlng new sources of energy,
and more
speciflcally of the economics of electrification.
0n
a reglonal l-evel- the regional economlc commissions have developed
progratnmes 1n the field of energy particularly with regarcl to
-6A
coar aJld el-ectrlc power (n.c.E. also on naturar gas) and. have
undertaken studies of energy balances covering energy from varicus
sources. The work of the reglonal economic commisslons in the
energy field will be lntensified.
l-54. One of the main functions of the f .A.E.A. is to
encourage and assist research on the development and use of
nucl-ear poner and to hel-p 1n the provislon of nucrear fue1s,
bearing in mind the special needs of the l-ess d.eveloped regions.
The large nuclear power pfants already built, or r:nder construc-
tion, are of potential interest to otLer countries with sizable
j-ndustrj.aLised areas, and several lntensive sr;rveys are now
being started or planned by the r.A;r.A.., r..el*f ed either to
specific projects or to the gerreral desir,abiiity of introducing
nuclear power into tire countr-i,es eoncerneC. The develcpment of
economic smaller reactors wouid alsc be of immed.iate lnterest to
a number of less developeC cor"r-ntrles whose present demand.s for
power can best be met by smailer units.
The f .A.E.A. is
conducting a continuing wor1d.-wide survey wiih a view to flndlng
promi.sing sites for the introductlon of nuclear power, and is
E"uup_.tS urlder i-ntensive review the develcl::nent of power reactors.
rhe r.A.E.A. expr-:cts to act as supplier or b:.-oker ior obtaining
fuel- for a number of research ancl training reaetor projects in
its member states ln the ne;rt five years arld to undertite or
arrange hazards eva,l-uations and d.o other work on reactor projects
in 1nc1ustria1ly cleveloped eountries. These activities wi11 show
marked expanslon should nuclear power become competi tlve in the
near future in a large number of countri es.
L55. The W"M.O. wi_ll continue in co-operation with
U.No3.S,C.0. lts activlties with regarci to wind, power as a souree
o,f encrgy and the use of solar radiation, Prepirations for a
united Nations conferenee on solar energy, wind power and
geothermic energy are now being
made.
:..55. 'I'he d,evelopment of mineral resources in less developed.
eountries has not been a field of na,jor activity but 1s expected.
to attract the increased attention from the United. Nations, wlth
particul-ar reference to the cr:ganisation of geologlcal and mining
departments, the economlcs of mineral prospecting-and exploratioi,
the economics of sma1l-sca1e mlnirig, a:rd. the deveropment-of
secondary minerals for loca1 use. Techr:j.ca1 assistance in this
fieltl is expected to expand. The spec.;al Fund has already
Cevoted a subs';antial amorrnt of its funos to mineral survejrs for
various underdeveloped countri-es, and will presumably maintain
or even increase the present percentage of expenditure (about
10 per eent.). rt is anticipatea that reports appraising
mineral- resources and their exploitabillty on a woifO-wiAe level
will be prepared by the United. Nations. E.C.lr.tr'.E. a:rd. E.C.l. A.
expect to increase their disseminati-on of j-nformation on method"s
of- surveylng, prospecting and exproi-tlng mlneral resources.
U.N.E.S.C.0. is planning to strengtheir its programne in the earth
sciences by stimurating the development of new-method.s in the
geologicar sclences useful for the exploration of natural
resources,
-61 J'57, The development and conservatlon of soil resources
ancl forestry resources will constitute important fiel-ds of
activity of F.A.O. 'Ihe work in soil resources appraisal- and
management is due for a major expansion, partly with the
asslstance of the Special Fturd. The tr'.A.0. appraisal ind.icates
done in determinlng
that in much of the world. too l-ittIe has beenj-mproved
management
the nature of the soils as a step leading to
through the efflcient use of fertillsers, croppi-ng systems, etc.
I'.A.0. has a speclal responsibility for forest resources, where
the relatively long crop cycle raises important conservation
issues.
I5B. In cartographyr the United Nations expects to
strengthen its assista.nce to Governments in d.eveloping cartographic servlces to provide data needed for development programmes. Increased work i-s anticipated. in relati-on to naturalresources development, especlally in connection wlth E.P.T.A.
and the Specia,l Fundr os well as with the actlvj-ties of the
It nay be noted that aerial
regional economic commissions.
photographic coverage is seriously incompleie in many countrles,
although it is important not only for the production of maps by
photogrammetrlc methods, brrt also for resource surveys and. other
economic studies. IJ.if.E.S.C.0. is also interested. in this
latter subject and proposes to hold in 1963 or l-954 a conference
on scientific theory and. method as applied to aerial surveying
for the exploratlon of natural resources.
(b) Manpower as an,-Etonomic Resource
L59, As Part I of this report has emphasised, manpower is a.
key economic resource. The I.1.0. is the agengy primarily active
in this fiel-d, through j-ts long-established progra.mme of setting
international standard.s, conducting researeh and issuing publications, and^ also through its progranme of field operations financed
from its regular budget, the Expanded Programme of Technical
The scal-e of activlties i-s
Asslstance and the Special Fund.
particularly in view of the
fronts,
expected to increase on all
vast programmes of economic and social development that are
The importance attached to
opening up in Africa and elsewhere.
this field 1s indicated by the fact that under the Expanded
Programme of Technj.cal Assistance as much as 50 per cent. of the
funds ad.ministered. by the I.L.0. are now devoted. to projects in
manpower organlsation and vocational training.
l-60. Activities und.er the I.1.0. operatlonaL progralnme 1n
manpower will lncl-ude an assessment of manpower resources and.
needs, the adatation of employment services to the specific
requirements and condj-t ions of the countries in course of
industrialisation, and the creation and development of vocatlonal
training facilities.
Training at aII leve1s of economic
aetivity from unskllled. workers to top management wi}J- remain the
Asslstanoe
largest part of the I.IJ.0. operational activitles.
required for
and
in the appraisal of manpower resources available
-62
econemic d.evelopment 1s now sought by a growing number of
Governments wlr-lch need such data for the determination of
their economic ancl soclal policles as a whole r &S well as
for the development of effective schemes of vocati-onal
training and rehabilitatlon, and the organisat ion of
employment services,
of the demographlc work of the United Nations
bears closely on the subject of manpower appraisal._ It may
be noted al-s-o that E0LA'has reeentltrr adopted a resolution
calling for an evaluatlon Of 'manpower needs ancl resources in
IlatinAnerica;I.L.qu.N.E'S.c.0.'theOrganizntionofAmerican
States and. the Inter-Gcvcrrunental Comralttee on European
Migration are ce-operating ln this proieot,
l:62, A consiflerable expansion of operatlo4al w.or.k ls
expected in the field of enployment servlcesr with particular
reierence to the adaptdlon of such services to the specific
needs and condltlons of oountries in the earller stages o.f
lndustrlali-sation. The method.s of the industriallsed countrles
aTe often inapplicable to such area6. fn vocational training
also , under ourrent evolvi.ng condltiOns, there is a .need. f Or
contlnuous adaptatlon of existing, ffid creation of new,
voeatlonal trairrlng facilitles.
L67. Three major factors will deeply affeot the development of manpower polici-es of the I.1.0. and of individual
countries during the comlng yearss technological changest
the expansj-on of the economically active population, and. the
j-ncreased pace and diversification of economlc development,
164. In its more t::aditional area of activities, the I.1,0'
will continue to promote the dlscussion and adoption of standards
and poli-cles for deallng with manpolver problems, taking account
of evoking oonditions. The 1.1.0. Conference is expected to
consider steps to re-establish or maintain fuIl employment in
the ligh-b of changes in the lndustrial structure, the influence
of automatlon and oth.er technological ciranges. The I.1,0.
Conference will thus in 1961 discuss employment problems and.
policies. In 1960 the f,1.0. Conference will deal with the
preparation ef detailetl development programmes for rural areas
as one of the most lnmediately effective means of expanding
employment epportunlties and ir:nproving living conditlons in
the countryside. A new Yocational Tralning Rccommendatlcn
respondlrrg to changing economLc and social circumstanceo is
being proposed for dlscussion.by the Internatlonal labour
Conference in 1961 and,1962
161.
Some
_63
:165.Asaresultofrecentdemographictrendsagrowlng
markett
of young people are comlng into the employment
I'1,'0' will
both in develoi"a rrrd 1"". devel|ped countries.
Conferenoe
consider the q.,iestion of youth potlcy al its 1960
vocatlonal
and
and examirr" *iy*-oi pro*otitg titgir iechnical problem'
training and tire sotutlon of their enplolnnent
noted that each of
L66, As regards trainlng, it shoulcl beconsiderab
ion is
the inter-governilental organilations under groups as
fcp
concerned with the education of appropriate
'.
social
lnstance, the United Nations in rl"p"ct of economj'sts,
of doctors, nurses
workers and demographers, w:H;o; in respect of
farmers, f orestry
and. sanitati";-;;;;o"""f i F.A.O. in respect
administrators;
and
agricuii""uf fi;1d officers
*ort
technicianst
"r";
],.A.E.A. in respect of atomic energy scientists and
U'N'E'S'C'03
ut9'
U.N.E.S.C.O. jx respeCtof teacfrg5, brfi, scientists, in general,
education
of course, ofso hal u ,u"pot"ififity Ltfo"
be noted' that I'l'0'ad
to
i-s
and
lncluding technical educaii;;,
between
U"N.E.S;'Clohave recently tgfuua upon a'l1ne of demarcatlcn
therr rcspeotive spheres of competence '
L6T.Inthefleldofmanpowergigrdion,sinceother
in Europer_have in
international organisations, pirti_culaity
the f'1,'0'
recent years und6rtaken opurrrbional act1vities,
of
dissemination
the
will concentrate on research and onthe
intermajor- :tudy.of
technical lnformation, Foilovuing
UV I-'f"0'. i.t' 1959
pu[tisheg
was
natlona.f migratlon whlcS
'
by migrants
another study dealing with agricultural settlement
future. Unlted Nations tryork
will become avallable in the-near
Research by thein the fj-eld oi m:-gratio^ has been reduced.
is being mad'et
effort
an
secretariat has been discontinued, but
concerned, to
in co-operation with the speclall?9+ ugu"cies
Efforts
promote needed research by^scientific institutions'encourage
f.1.0. to
are also made by the united Nations and agencies
for the
and co-ordinate the action of voluntary
assistance of migrants.
number
'
2. $g3lqultural Produclion.-i-ncludlng Fgrestry and I'ishing
to the primary
L6E. The discussion in Part I has referred
i-ncrease
less developed countri'es to of
neeil in tlre
the
level
".o"oori"a]Iy
proOuctivity and raise lfre lncome
these
that
"griculturalaEricurtural iopulation.- It was also lndicated
means'
b{
reached
9n1y
99'P1u*that
relativefy simpie goals can be of d-iffeient
are
fields
involving activities in a variety
the
is
produetion
complementar:y and interacting. lgticultural
1n
pro,rirr"u of iyre r''A.0, It i;. of course, inseparable
_64_
praetice from the questlon of food consumptlon and nutrlti-on,
although that subjeet will be dlscussed. 1n the present report
at a later point.-
l5g. The appralsal of food requlrements, particularly by
studles of commodlty trend.s and by f ooci consumption surveysr to
truhieh F.A.0. proposes to give conslderably more attention in the
forthcoming years (together wlth an appraisal of the requlrements
for other agricultural products), is essential for the guidance
of food production policles. Similarlyr the appralsal of
physical agricultural resources (soiI, water, p1ant, anlmal,
forestry and fishery resources) helps to lay the basis for
agricultural development. Very 1ittle is known about soil and
vegetation 1n tropical and. semi-tropical regions, in which
most of the under-developed. eountries 1ie. In naking appraisal s
tr'.A.0. emphasises the lmportance of going beyond the purely
technlcal appraisal of resources and of vlewing the possibilitles
of agricultura1 development in the broader context of economlc
and institutlonal feaslbillties and limitations. The Mediterranean Development Pro ject 1s sn gxe.mple of such an effort
to combine technlcal eppralsal of agricultural resources with
general economic and institutional analysls.
170. rhe development of agrlculturar resources is also
lnseparable from the question of conservatlon. F.A,o. plans a
substantial inerease in its work in the development and
conservation of agricultural resources, with major expansions
in work on land. use .and so11 conservation, farm d.evelopment
and. economic appralsal of development projects.
f71. The rargest part of F.A.0,ts actlvity is concerned
with techniques for lncreaslng productlon - technlques concerned with improved management of grazing and forest 1and,
better crop and llvestock husbaniiry, better seeds, better
fertilisers, better breedlng, control of animaJ- ancr crop
dlseases and pests, etc. lliork here lneludes not only assj-stance to Governments and technical studies and reports, but
also the establishment of in'rernational conventions and. agreements,
particularly 1n relation to the control of pests and dlseases.
F.A.0. consj-d.ers that the following shoulc recelve priority
ranking for future expanslon:
1- Examination of the outllne of F,A.O. programres 1n the
Appendix to the F.A,0. Appraisal Report will give a read.y
picture of the totality of the progranmes of that organlsatlon.
_65
(a) improvement of technlques 1lkely to result in a rapid
increase in production ln under-developed countrj-es (e.g.
wid.e-spread use of fertilisers) ;
(f) improvements in production directly aimed at raising
nutritlonal standariis (e.g. increase in llvestock prod.uc.tion
and expansion of fish culture) i
( c) lmprovements j-n the production of commoditles largely
tradeil by under-developed countries and constituting their
main source of forelgn exchange (e,g. work on perennial tropical
crops and tropical timber);
(d) i.ncrease ln the output of commodltles vLtich are 1ike1y
to give to the farmers substantial returns ln a relatively
short period of time (e.g. poultry production); and.
(e) protecti.on of crops and lnprovement in the managing
of f arms and water supplles,
l-72, The control of the desert l-ocust as one means of
increasing yields is an outstanding example of a project
involv1ng an internatlonal (regronal and j-nterregional) approach;
it is belng carried out through F.A.O. with the assistance of
the Special Fund and the co-operation of llii,M,O. and U.N.E.S.C.0.
L71 , ![h11e the main emphasis 1s upon the teohniques of
production - obtalning greater yields through modern methods
it is now fe1t, however, that this approach requires stronger
support f rom methods that wi 1l- lncrease the motj.vatlon and the
capaciW of the farmer to improve his produetion. /tccordinglyr
there will- be an expansion of F.A.0. Progrmmes concerned with
the agricultural lnfrastructure - the institutlons of land
tenure, credit and nrarketing; the adminlstration of agricultural
services by government; the educa"ti-on and training of all concerned from the farmer up. The expansi-on of rural or cottage
industries, whicLr create and sustain d.emanil f or primary products,
is stressed r &s 1s the study of lnternational comnrodlty requirements whj-ch can be expected to affeet future demand arld, thereby,
help to create incentives for production.
L74. A substanti-al expansi-on is planned in F,4.0, work on
the improvemqrt of marketing methods and servlces - a subject to
which it has been posslble to devote only limitecl resources ln
the past. Thls is considered to be of central. importance for
less developecl countrles in the developnent of agriculture towartl
a nodern type of economy'and,-,away from a subbistehce,.economyj and
-66
in the ralslng of the income of farmers and. flshernen. euestj-ons
of lmproved transport, storage, packlng, gradlng, retail and
wholesale market operatlon and' pii-c:.ng-po1icie"-ur. 1nvolved,
among other matters,
t75. A ma-Jor-F.A,0, undertaking in the period
consideratlon is the Freedom-from-Hungui Campaign whichunder
was
approved
by the L95g F..,,'.,0. Conference to eitend fiom-1960 through 1965,
seeks to stimulate universal action on the corTli". ca^nTpalgn
ti-nuing
problem of hunger and malnutri,tion in the und.er-dev"ropea
c_ountrles, through a coneerted attack upon the fundamental
obstacles to sound agrlcultural- development. [he Freedom-fromHunter- Canpaign r_ecognlses the close lnterdependence between
agrlcultural developmcnt and developr.rent fn otirer--sectors of
the- economy. F"A.0. visuallses its task or meetir.!-tr," problems
of hunger 1n a rapidry expandlng population in terils or aovisory
servlces and assistance to Goveinmeits on -bhe best ways of
utilising their a.grieultural resource s for
pro*oii.rg-generaL
economic develo^pm9nt, and tt]: best ways to j_ncr"ase"t[e supplles
of nutrltious foods within the framew6rk of such d.everopment,
the canrpaign will lnclude research and backgro,rrrd studies
lhus
into the critical areas of agricultural developmJnt,
a r,vid.espread programme of public education and the sitnrutatlon
of action
progra"mmes of all types whi cLr may contribute to
the se end.s,
176, The concern of the regional
comrnlssions of
the united Nations in a1r aspectr of theeconomlc
economic development
of thelr_ regions has necessaiily caused them to be active, i,
close collaboration with F.A.o.; ln the fierd or agriculture,
To facilltace co-operation, joint dlvlslons wwith F./r.0,
have
been established in the secretarlats of E,C.E,, g.C.ji,F.E.1
E.c.l.l!, and E,c..rl. The ercphases that are ri_tery-to emerge
in the work of tlu?e jolnt divisions are describLd in the united
Nations appraisal in detall,
_Jt is proposed, for example,
that the E,c,E./E.A.e. joint divislon
should glve increased
attention to forecasts or production and
d"emaird so that
agricultural resources could be uti1lsed. more
rationall_y and
trade be steered in directions of mutuar advantage.
rn the
E,c.A.F,E. region, contlnued aetlvlty 1s antlcipated in
agri_
cul-tural plannlng, flnancing and
price poI1cles,
"rub.it,
agricultural economlcs,
oi-iir" utilisation
of agricultural surpluses. Tfr" joint and-study'
divlsion"
or
expects to concentrate on analys6s and projectlons n.6,i.il7rl;,i0.
oi agr:.cultural
productlon and trade for the rLgional *"rro,jt, and on
of
th: role- of agriculture 1n the economlc development studies
of
the
region
and of obstaeres to agrieulturar growth. rn E.il/r;; the jolnt
di\dslon will revlew cument progiess 1n agrlculture
and examine
means and. plans to inerease productivityr"w:tth-pr"ii_cular
emphasls on studies of dlversitication in agrl"ritrru and
of
factors ln the transition from subsistenoe
to commercial
marketlng and
agrlculture.
-67
L77, Small-seale industries, which embrace rura1, village
or cottage lndustries and which lnterest F.A.O. from the point
of vlew of the processing of agrieultural products t dre to be
given priority action ln the United Nations 1n its industrlalisatlon progralmer I,Ir.0. is meanwhile interested fron a labour
point of view and has developeil a falr-sized programme in rural
industrles, i.nvolvlng field operatlona sr ch as surveys r Prod.uction and tralnlng centres, technlcal advlsory services for
particular crafts and supportlng teehnical research'
1J8. I,1.0. is planning to have a broad discusslon 1n 1960
its
role in raising incomes and inaprovlng living conditions
of
i.n agrlcultural commuirities, wlth partieular reference to the
economlcally less d.eveloped countries, It already ha.s a programme 1n the field of co-operatlves, which extends to rural
co-operativcs, including rural credit socleties, and is concerned
with vocational training and the productivity of agricultural
workers.
W9. The comr,runity development programne under the United.
Nations (see below) is IargeIy, 1n practi-ce, a progratnme of
development of yural communitj-eS, Agricultural extension, cooperatives and various'other actlvitLes 11sted under agricultural
productlon fit into 1t. At the same time, Iand. reform, including
lmprovenent of tenancy conditions, is a matter of interest not
only to F.h.Q, but also to United Natlons and f.1.0. bccause of
its broad economic and. social irnplieations.
180. The I.h,E../,, 1s co-operating with F.A.0. in the use
of isotopes to lncrease productlvity in agriculture and to assist
1n the preservatlon of food. Conslderable progress is expected.
from research 1n thls matter, which is new but has already proved
its value.
181. 'tIi,M.O, 1s expandlng its work on the applieatipn of
meteorology to agriculture and w1]L co-operate rvith F,4.0. in thj-s
respect. li serlcs of workj-ng groups has been established on such
matters as forecasts for agriculture, weather and plant patholory,
and protectlon agalnst frost damage i a world cliriiatic atlas ls
envisageil.
5, Ind.ustria.l- Growth
LBz. /rt its fourteenth sese;ion the General /rssembly unanlmously approved a resolution recommending that the Economic and
Social Councll give consideration to tlre pronpt establishnnent of a
Commlssion f or Industrial Development . This sub ject . has 1or:g been
regarded as one of the maln areas of opportunity for internatlonal
col]aboratlon and asslstanee - one in which i-t has been felt that
the United Natlons family should play a langer role.
-68LB1, Under the technlcal assistance programme a number of
jects have dealt with ttre establ-ishment or expansion of
speclfic industries as well as with more general questlons of
industriail growth and tir.e formulation of comprehenslve progranmes
of lndustrialisation, l'he Special Fund, is likewise actj-ve in
pro jects lntend.ed to facilitate j-ndustriaL growth, The United
Nations and severaJ- of the speclalised agencles are thus j-nvolved
1n a series of field opcrations concerned with industriallsatlon.
One of the problems arj-sing in connectlon with field activltles
and. thelr servlcing by the United Nations and the relevant
specia1-ised agencies 1s how to develop a better procedure of
two-way comrnunication so that the experience gathered in the field
is properly assimilated a,nd in turn made a,valla.bl-e for future
projects. Closely allied. with this is the question of improvlng
facilities at liead.quarters or regional office s for the guidance
of the numerous and c,ftcn highly spcclalised field operatlons,
184, L report on rr}:ianagcrten'b of fnclu.strial Enterprises in
Und.er-Developecl Countriesrr has been published by the United Nations
as well as thc serles of studlcs appearing in therrBulletin on
Industrlal-i.zrtion and Prod.uctivltyrf , h revlew of the Headquarters
programme of work on lndustrlalisatlon by a Coru:rlttce of Experts
recorurended among other studlcs such toplcs as ineentives for
private lnvestroent, foreca.sts of demand for selectcd inrlustrlal
products, establishment of industria"L zones, and the financlng
and rnanaging of small-scale lndustries and their relatj-ons with.
large industrle s. It also recominended the stud.y of rla.cro-economic
aspects of lntlustrialisatlon, i-ncludlng questions of the programming and plannlng of lndustrlal development. Other reconi-rnendations incl-ud.ed. case studies of lndustrlalisation in countries of
differing econonic structures under varlons technical. asslstance
programmes anil the setting up of a ccntral clearing a.gency for
experienoe galned. in fit:ld operatlons, fhe programrne of United
Nations studies of industrialisation is expected" to develop
largely in the directions recorflmenrled by the Committee,
1.B5, Industrialisation and productivlty play a large part
in the activitles of the reglonal economj-c coilnlssions. Subconu,rittees or worklng groups have studied and kept under review
a wicle range of topics such as: lron ancl steel (E.C.E,,
E. C,A.F,E, and E "C.l.A t ) ; certain small-sea1e indrrstries
(E . C ,A ,F ,E. ) i te ehniquc s and. rnethod s of programming lndus trial
d.evelopment (P.C./!,tr1.E. and E,C .1.h,) ; automation (E,C.E.) .
fn the newly established 11.C.;'!., the need is recognj-sed f or
studies of varlous aspects of the problems of industri-alisa'tlon
in /ifrlca, includlng the f inancing a.nd progranning aspccts.
A11 the regional comr,rissions expect to expand thelr work in
industrial lsatlon.
pro
_69
185, fhe vuork of thc f ,Ir.0, in the field of industrial
growth includes not only research and the set'bing and enforcement
of lnternatlonal standards but also to an increaslng extent,
technlcal asslstance gi.vcn to Governrrents to increase prod.uctivity.
Training anc1 d.emonstratlon are the maln aspects of direct assistance, but it 1s planned to devote lncreased resources to the
preparatj-on of practical handbooks sinllar to the recently
publisheci Int{g{ggt-ion to lYorjc Stucly. .i,dvi-ce to Governnents and
industry on the organlsation of appropriate trainin6l servlces to
meet the shortage of entrepreneurial and managerial skil1 and of
quallfled teclmlcj-ans and supervisors is expected to continue and
expand, I.1.0, wil-I help countries to set up productivity centres
anci facllities for vocatj.onal tralning for the improvenent of
productlon techniques. The I.1.0,ls programne in labour-management
relations also servcs the gencral aln of industrial growth.
f87, As noted abover F,rr.0. is concerned wlth developlng
rural industrles for th,: processlnil of agricultural- products,
j-ncludj-ng fisheri-es and forest products. The organisatj-on takes
the position that it may be bctter to promote lmprovements in
traditional mr:thods of processlng, whlch enploy large nurobers of
individuals, than to deuelop large and. highly organised lndustries
before alternative.elnlo}.ment opportunities have opcned rp,
188. The I.A.E.-4.. j-s concerned vaith lndustrial grolvth in a
number of ways besides the promotlon of nuclear polver. Isotopes
have a1rea.c1y 1ed to conslderable savings in industry by lncreaslng
produetlvity and. improving thc quality of the g oocls produced,
Their existing applicatlons are being surveyed and their use 1n
the less dcveloped areas as well as in industrialised countries
will be promoted by techni-caI assistance, speclallsec'i syroposia,
trainlng ancl exchange prograrnmes and aspistance in ttre establishmenb
of regional centres. Nuclr.ar reactors also promise to be of value
in the production of heat for industrial processlng and as a new
an<L possibly revolutionary nearJ.s of inducing chemlcal changes in
the manufacture of synthetics. Thc I:A.E.A, foresees considerable
expansion 1n its work on thls subject.
4, Trans_port and Corulunicatlons
189. No less than four of thc. specialisedr agencies are
dedica'ced to work ln the fielcl of 'transport and comurunications:
the Universal Postal Union (U.?.U.)1 the International Telecomr,runications Union (I,T,U.), the International Civil i'rviatlon
Organlsation ( I. C,/i. O. ) r a.nd the re cently establlshed InterGovernmental L{aritime Consultatlve Organizatj-on (I.wt.C.0.) . These
agencles are essentially regulatory and technical bodies created
to facilitate internatlonal postal services, teleconmunj.cations,
aviation and shipping, ./,s pointed out earliu'r, they are not
lncluded in ttre appraisals becauso. of their prinrarily regulatory
7O
character. This sh.ourd in no way be taken as d,erogating
from their lmportance. The remarkable developrnents in recent
d.ecades 1n the field of international aviation cou.ld hardly
have occurred wlthout r.c,.ii.O.ls work in the plannlng and
<levelopment of international air transpclrt in such a way as
to ensure its safe and orderly growth, including the provision
of air navigatlon facilities. The ratlonal use of telecommunications 1s unthinkable without the aetlvlties of the
r.T,u. in such matters as the arlocation of frequencies and
the most efficlent use of technleal facillties. f.!I.c,o. has
as one of 1ts primary funetions the developnent and lilprovcment
of regulatlons designed to ensure safety of 11fe at sei, .,ro a
limitec d.egree these organioatlorrs have shared in the E.p,T.I,
and will continue to offer withln their areas of responsibility
technical asslstance'bo Goverru:ren-bs,
L9o, rn its early stages, the united 1Vations also gave
conslderable attention to international conventi-ons ancl iegula"tions concerned with the transport of goocls ar.c1 personsr and
a nunber of agrecments are now 1n force, /,<lditionil work is
envisaged in the promotion of frontier facllities and. in rendering safe the transport of dangerous goods. speclal
attention will be gi-ven to the promotion of inteina.tional travel
and. tourlsm, including the deslrability of convening an i_nternatlonal conference on these suhjects,
191. The rnain enphasl-s of the work of the United Nations
in the future, however, will be on technical assistance activitles
ln such fields as ln1and transport by road, ra1I and water and on
econonlc aspects of transport and, comnunlcatlonsr especially in
relatlon to economic d.evelopnent. fhese fcrns and aipects 6r
transport aTe to receive j-ncreasing attention especially in
E.c.-r.,F'E. (e,g, the project of aR Asi-ari highway from rstanbul
to Singapore) ancl in 1r.C.l./i. The Economic-Comlnission for /rfrlca
will also rlevote speci-al effort to problems of transport
developnrent whlch have high priority 1n all countrles of the
region' This shift 1n emphasls to transport questlons in the
less developed countrles is consistent wlth the fact that the
tremend.ous recent advances 1n the technology of transport and.
communlcations, which have been refcrred to earrier, have
benefited the developed countries but havc hact dlsproportlonately
small or uneven effects on the lnternal and regional economy in
rnost of the under-developed areas. /rlthough the lnportance of
this field 1n providing thc essential underplnning or nascent
industrlal soci-eties is widely recognised, inuch r.r6re has to be
d.one to make aclvances j-n transport and connunlcations econonlcally
possible 1n the coun'tries that need them most.
-71
192. 0f the other agencies covered by the a.ppralsals,
the v.[,M.O. is plannlng to expand its activitles in connection
wlth the appllcatlon of rneteorology to aviation and shippingr
in co-operation with I.C,/,.0' anrl I.M.C.0. respectivcly'
I.A,E.A. j-s interested in the nuclear propulsion of sltlps,
partlcularly the safety aspects, and 1n the developroent of
regulations for the safe transport of radioactive materials.
'rY.H.O. will continue to play a signiflcant role in facillta-i;1ng
world traffic through its universally accepted International
Sanltary Regulations, which are kept under constant study to
delete obstnrctlve practlces that become unnecessary as
condltions change; and through lts technieal advice on the
transport of dangerous goocts, IJ.N.E.S,C,0. ls expected to play
a major role in provlding tochnlcal asststa.nce in co-operatlon
wj-th I.T.U, and other appropriate bodies 1n the Cevclopment of
means
of nnass communications,l
5. International Trade gn{ Cgglnodfty Problems
L95, The expansion of v,rorlcl trad.e has allvays been regarded
by the Economic and Socj-al Councll'as a major factor in the
improvement of standards of Iiv1ng, Early lntentions to create
a specj-allsed agency for intcrna.tional trade have not materialised
but the Counci-l has been able in its discussions to take account
of the results achj-eved by the Contractlng Parties to the General
Agreement on 'Jarlffs and Trade (G.ir,T.T,) 1n lovrerlng and stabilising tariffs.
A94. The Council itself has establlshed two boil,les
specifically concerncd with lnten:ational trade ancl corirmodity
problemsB the Interim Co-ordinating Conamittee for ftlternational Commodlty hrrangements (I,C,C,I.C./,,) and the Cor:rmission
on Internatj"onal Commodity Trade.
195. Ihrough I,C,C,I.C.A. the United Nations, j-n collaboration with F,A.0. and G.A.T.T, anf. the conmodity groups concerned,
has stimulated lnter-governmental negotiations on a commodlty-byeommodity basis, Several conferences have been arranged and
serviced, somc of whlch have Ied. to new agreements. The
participation of both ir:lporting and exporting countries has been
I tr'o, further reference to U.II.E.S.C.O. ts wo:rk j-n nass
communications, see be1ow, Part II G, I{uman ltights, includ.ing
Freedom of Information.
-
72-
encouraged. In addltion various special studies havo been
publlshed as well as periodlc Elemoranda on recent cornmodlty
d.evelopments.
L96. According to the revised United Nations appraisal,
lntensified work relating to trade and conmodity problems will
bc undertaken by the United Nations in the following areas:
(a) trade impLications of reglonal or sub-regi.onal integration,
both within the region and for the rest of the worlo;
(t) sturLles of the causes of excessive price fluctuations of
primary conmodities, and remedies, by natlonal or lnternational
actlon, and studies of long-term trends in the prlces of primary commodlties; (") analysls of experience in maklng
comraodlty agreements acceptable, effectlve and durable;
(a) studles of proposals for action at the national and lnternatlonal level-s, to compensate for lnstability in commodity
markets and. trad.e (these sturlies to lnclude an analysls of the
effects on prlmary conmoditles of economlc fluctuatlons 1n
ind.ustrlal eountries); (e) estlmates of prospective supply of
and demand for indiviclual prlmary eomrnodities; and (f) development of technlcal assistance and advisory activiti-es, wlth
Lgl . tr'or the deliberations of the Corulisslon on fnternational Commodity Trade statlstical series are prepared, plus
a comprehensive annual ttComroo<lity Surveyrr "
198, Stability and growth in ihternatlonal.markets of the
prinary products of agrirulture and forestry are basic to the
work of tr'.4,0.; study and d,lscussion of conuiodity problems and
work wlth various lnter*governmental comnodlty bodies, includlng
both those within the F.A,0. stnrcture and those outside'it
(International- Wheat /r,greement, Sugar .ligreement, G.r. .[,T. ; etc,),
will contlnue to occupy considerable attention 1n that agency.
:
For exanrple, F.li.0. promotes joint actj-on by groups of countrles
in grading and stan.dardising agricultural comrooditiesl advises
on marketing; analyses the effects of natj-onal ancl international
policles on supply, d.emand and prices; and conducts studles lnto
the question of surpluses and. the construetive use, fhe inportance of this work can be gauged fronr the faet that trade in
agrlcultural products accounts for about four-fifths of the
value of total trade 1n prinary products. F,./r,9. envlsages a
noderate expanslon of thls work. ft is also studying natj-onaL
agrlcultural price support and. stabilisation policies and their
repereussions upon internationa.l markets and trad.e, wlth a view
to the development of agreed. principles to servc as guide lines
for
Governments,
-71
L99, Slnce fluctuatlons in commodity'prices can aciversely
affect wage levels and employment, the f,l.O, 1s serlously
concernecl about the effects of developments 1n international
tracle on 1ts action alnred. at achieving higher social standards.
2OO, Inaternational trade 1s one of the major interests
of the rarious reglonal economic commlssl ons . E. C,/r.F rE, I s
Comrnlttee on Tracle keeps und.er revi-ew, for example, trad,e
promotlon, customs sirnplification, arbitration, stanclard.isation
and the holding of internatj-onaI falrs, This work 1s expected
to lncrease particularly in relation to intra-reglonal trade,
the sI-nnplificatlon of regulations and comnrerclal arbitration,
E.c'E, also has a committee on the Development of rrade which
provicles an all-Europearl forum for the discussion of these
problemsl work is likely to d.evelop partlcularly on the lega1
aspects of the unlfication of commercial practice, standardlsation of eond.ltions of sale of selected comnodlties,
insurance, the protection of technical lnventions, arbitration
ancl the slmpliflcation of trade documents.
201. The major concept of a regiona.l market in latln
limerica has already been mentloned, Ihe Trade Comrrrittee of
E.C,l.A, 1s concentrating its activities on this questlon
and the related. question of paynents. Indeed, so great is the
importance attached, to the stud.ies and negotiations leadlng to.
the establishment of a comnon rnarket that this may be regariled
as the major activity of E,C.I.A. durlng the years under
revlew. E "C.1./r, I s f irst established subsidiary organ, the
central /inerican Economlc co <peratlon conmitte e, has anongst
its aims the establishnent of a common market in that reglon,
202. Anong the projects of the E,C,.li, is the study of
the lnrpact of the D.l.ropean Economic Comnunity on the trade
of /tfrican countries; which is to be undertaken in consultation wlth the E.C.Er se cretariat, G./.i,trf , ar:rc1 other jlternatlonal organi-sations. A serj-es of studles on intraregional trade and also on prinary products in the world rnarkets
1s planned,
201, Although by deflnition the reglonal conmisslons are
primarlly concerned wj-th the trade problens of their ovvn reglons,
there is also the question of trade relatlonships between
regions and of the need for knowleclge of each otherls activities
anc1, where appropriate, for collaboratlon, It is beconing
lrrcreasingly clear that some of the most lnportant regional
-
74
-
econonlc problems, if they are to be solved reallsticarly ,
nuet be submitted to gIoba1 as well as regional conslderliion,
Thls is partlcularly true of payments, cornuron markets, free
trade areas, and corrn:.odity po_licies,
2o4: Together with the activlties so far described,
technical assistance is provlded, particularly by the united
Nations ancl F..A.o, e ln questions related to tiade such as
narketing, trade prorootion, commodlty problems and tourism.
One example of lnter-organlsailonal bollaboration wlthin this
very varied prograr.lme 1s the provlslon by the united. Natlons
of fellowsLrlps for in-servj_ce trainlng in G,/r,T,T.
C.
SOCL.L }E\TEIOPMMIT
2o5. while eeonomic progrannes are conccrned with the
productlon, transport and distribution of gocds, and alm at
the lncrease of naterial wealth, soclal programrres are
concerned, with the wcIl-being of the f amlI-y and the indivldual,
and with services to proraote this rruelfare dlrectly, [he
d"ivlding line is, of course, often not clear anc many progrannes
can be classif 1ed under either or both headi-ngs as, ?oi eianiple r
agrari-an reform, labour procluctivlty programmes, human relations
in_industry, -housing and physical plannlng, price controls,
collection of employmcnt and laboui force-data, etc,
l-. Popul-ation
205, The unlted Nations is the agency chlefly concerned
with populatign-questj-ons, although \ni.H.0, is obvlously interested in vital d.ata on bfu'ths and. d.eaths, and the r.l.o. is
concerned wlth rcanpower problems and the infl-uence of populatlon
trends on enployrnent. ft rpi1l be seen fron the Unlted Nations
appralsal that the programme of that Organisation in the field
of population consists mostly of studies, conferences, and the
trainlng of personnel to c onduct studle s . v/.H.0 . I wh11e
_obvlously dedicated, to the reductlon of mortarlty'rates,
llkewise has no program:le so far as birth rates Lr" concerned
other than the dlssetrlnation and use of data,
2o7 , sorne Governnents arie not yet fu11y aware of the
magnitude of population changes taking place, or beginning to
place, within thelr own borders, or of the rel6vance and
lake
lmportance of these new Crevelopments to the economlc and soclal
future of their countries, Demographic data are ar:rong the most
elenentary type of infornation requirec, for economic ino soclal
-'t5
analysis and planning, whether from a local, regional, national
or wor1d point of vlew; yet they are Lacklng or unrellable for
large areas of the worId..
208. The United Natloni progra^srne in the field of population
will be extend.ed in the following directions d.uring the next five
years: (1) informatlon on population trends and t[eir relation
to economlc and social problens; (2) studies of rural-urban
migration 1n under-devcloped countriesI 3) deirrographlc pilot
studles demonstrating to interested Governments the methods of
collectj-on and. use of denographic data; (4) aid bo Govr:rnnents
in the evaluati-on and utllisation of the results of the censuses
of 1960 and 1961, (5) worlC conferences and regional seminars
ained. at'developing lntercst in ancl undcrstand-ing of deriographic
problenrs.
209. E,C./t.1 E.C./i.F.I, and n.C,Ir.,', w111 undertake
pro jects related to tlris set of topics. For exarnpler
E.C,l./,. is giving particular attentlon to clerrographic questions
related. to labour supply and tq demographic arialyses and
projectlons requi-red fcr ecoi:onic programning. E,0..ii.F.E. will
sinilarly conslder the effects of population trend.s on nanpouierr
capital formatlon and investnent and, of eeononic developncnt
upon population growth. E,C./,.F.E. and E.C.I,.A. will concentrate
on the reglonal tralning of demographers and on research on
internal migration conne cted with u::banisatlon . E , C ./..F .E . has
reconmended the holding of an /rsian Population Conference in
late 1961 or early L962, whleh will consider, among other things,
the use of denographlc stuclies in relation to econonic and social
development programmes and the experience of Governnents with
fanily planning progrannes'and other methods of clealing with
the problems of populatiOn;
2 . Egusiqg,-qU=11di-]qg-q4c1 Physfcal P&,nnins
zLO, The growlng seriousness of the housing situation 1n
the less developed areas and the inability of Goveri.inents to
cope with tiris prdblem by method.s hltherto used have 1cd. to the
recent establishrnent of a concerterl inter-agency programme in
the field of low-cost houslng and relateC corn:runity facilities,
This covcrs flve main sub jects in which varlous types of
actirrity will be undertakcn:
(f) The pla,nning, organlsatlon and admlnistration of
programnes of low-cost housing and communlty
facilities;
(2) The nob11lsa.tion of inclivldual and. group efforts to
various
extend lovi-cost housing;
o
-76
3) fhe provision of conmunity facilities;
(+) The increase of the productivity and capacj-ty of
the building industry; and
(5) Ed.ucation and tra,ini-ng
Zl-L. This progralnme, wllich r,riIl compri-se a number of
specific projects, ciefi-nes the major' lines of emphasis of work
on this subject by the United }Tations in the next five years,
It will be carri-ed out through fact-finding surveys of the
resources available for low-cost housing analytlc studies, pilot
and demonstratlon projects, semi.nars, etc. r o[ a national and a
regional basis; anc). particularly through assistance to countrj-es
in organising low-cost hou-Sing programlnes, mobilising their own
human and. material resources for work programmes, and. reducing
the present costs of building.
2A2. Co*operating in this long-range progranune are the
regional economie commissions from an economic point of vier,r,
the I.t.0. from the poini of view of improving workerst housing
and. raising the level of efficiency in the building ind.ustry,
F.A.0. from tlle point of view of tilnber resources and. home
economics interests, and" 11.H.0. from the point of view of health
and sanitation.
The Uniteil. Nations (Bureau of Social Affairs) will
meanwhile continue other progralnme,s, such as the national and
2l-7,
regional housing centres (in co-operation with the regional
coilmissions) and work in environmental (physical) planning and
regional planni-ng, particularly in relation to over-a}I development. E.C.E. will emphasise problems of raising prod.uctivity
in building operations, urban development and town plantti-ng,
assessment of housing needs, and the international s'tandard.isati-on and specialisation of building equipment. E.C.A.F.E. proposes to keep the questi-on of low*cost iror-rslng and the reduction
of builcling costs to the forefront of attention, Tbe Central
American Economic Integration Programme of E.C.L.A. lncludes
studies of bui1din65 materi-a,Is ind.ustries, building costs, and
the demand for building materials, as well. as the'orospeets of
meeting the d.emand with Central America,n products. E.C"A.
plans to organi-se a workshop on the imtrrovement of rural housing
and corununi-ty facilities within communrty development programmes
in Africa.
2L4. lrlorkersr houslng is on th.e ag;enda of the 1960
Session of the International Labou:: Conference, and the Conference may decid.e to aim at a Reeommendatiorr. on the subject in
1951. In addition to a progralnme of str-rd.ies and reports
related to workers' housing, the L1.0. offers technical assistance on productivity in the building i-ndustry, vocatioual
training and housing co-operatives.
77
7.
Heqlth
2L5. fhe field of heal-th is largely synonymous with the
of W.H,0. The organi-sation distinguj-shes between work of
an international nature and activities designed to assist 1n
the solution of national problems. A major expansion of an
international nature in the period. under consideratiorr will be
in health research. By the tenth anniversary of l/.H.0. in
L958 it was evi-dent that the organisation's work in fightirrg
certain diseases and ad.vancing certai-n forms of health work was
weli under way but that in ot[er cases progress in raising the
worl-d health level wor-r1d. depend to a growing extent on the
acquisition of new knowledge. In many cases this cannot be
arrived at within the national boundaries of or:.}r 6n" country
and an internatj-onal co-operative effort is necessary to suppleworl<
ment national- medical research programmes. The intensified.
i/'1.H.0. medical r.esearch programmes wj.U_ deal mainly with
communicabre diseases espeelally those prevalent ln the
tropics and with virus diseases, -oroblems of nutrition, cancer,
cardio-vascular d.iseases, health problems arising from the use
of ionising radi.ations, and stud.ies in human genetics.
2l.6, Through such services as the stand.ardlsation of
nomenelature and. techniques, and. intern.ational- reference centres
for the identlflcation of materials (e.g. viruses, tumour tissues,
etc.), W.H.0. hopes to achieve a greatei comparability of the
results of research in vari-ous countries than has been possi-bte
in the past.
2a7. Among the continuing actj-vities of the fi,i-I.O. of
world-wide reference are: interna'bional intelligence on the
spread of epidemic diseases and. international quaranti-ne
regulations; the conrpi-latlon and analysis of health statistics
on a world-wid.e basis; the establishment of international
standards; and tlre publishing and keeping up to date of texts
quch as the In-bere!.i@,
and the -Iq!S-g1lll-Li._ona1
9f apsifiqdl i on o,f D i s eas e s . In.j ui:i g5--Apd _Eus es__q I__DS stli, the
eighth revision of which is due tn L965,
In its statistical
woric, W.H.0. collaborates closel.y with the United Nati-ons,
I.L.0. and U.N.E. S"C.0. Biological standardisation (international standard preparatlon of vaccines, sera, hormones and
antibioties which, because of their complex biologicar nature,
cannot be chemically assayed) is another long-term progranme
running through the period und.er review. Internatlonal requirements will be extended- to al1 importa.nt biological preparations.
2l-8. Rad.iation and health is a hlghly involved. subject
that will occupy the attention not only of W.H.0. but also of
the United Nations, I.Ir.0. , F.A " 0. , U. N. E, S. C.0. and of course
the I.A.E.A" with consequent co-ordinati.on problems. On the
one hand, radiation can be used 1n medicine for dlagnostic and
170
l(J-
therapeutic purposes, In clinical research, isotopes used as
tracers give nerr insights into many metabolic proces$es, nake
possible a number of completely new diagnostic techni-ques, and
are the preferred treatment of some forms of caneer and dlseases
W.H.0. wiIl, in the review years,
of 'bhe blood. I.A.E.A. and.
j-nto
these questj-ons as weII as provide
promote further research
direct help to governments. As with so many topics treated in
the appraisals, lack of trainecl personnel will be one of the
major obstacles to overcome. Equipment also ls expensive and
scerce, and in uiany of the co,.rn-'uries that wil-l need them most,
the importatiorr. of isotopes will present a problem of foreign
currency.
On the other lr.and, radiation e.ilr-ses public health problems.
W.H.0., I.A.E.A. and I.1.0. co-operate ttrith eaeh other 1n their
respectj-ve areas of inte::est to deveicp standards of protection
and. to provlde relevant training facilities.
2]-9, Tl:e main activities of W.H.0" 1n regard to "national
problems'r may be d.escribed. und.er three broad head.ings:
strengthening of nati-onaI heal-th servlces; measures against
dlsease; and education and trainiirg of professional and
auxiliary personnel.
(i)
the
S-tr-enethen;.4g._el--NAfi pgal-
th
lvi c e s
22O. The type of assistance needed by a country in
developing a national heal.th service will- vary largely with lts
state of economi-c development. Wrile the highly develooed
countries will on the whole not request operational assistance
except in newly de'reloped., very speciali-sed. fields, the
developi-ng anci underdevel-opecl countrj-es have a need for direct
assistance in planning ar:.d organising health services.
22:.., Ij'tr.H.0.'s work in public health aclmlnistration has
become i-ncreasingly governed by the coucept of integrated
servicesr 3s dis'binct from servlces protzi-d.ed sepa:reutely j-n
specific limited fie1ds. This imlclies the integration of
curative and preventive services at aIJ- levels, from the basic
health unit of rural hospital to the centra] adminj.stration,
to permit the maximum avalJ.abiJ.ity of services to the entire
population at the local leve1 and competent technica,l nlanning
and. guldance from central and intermediate level-s of the health
administration. Ivlu-ch of W.H.O.rs work in the period und.er
consi-deration will be concerned with assi-stance in the c1.evelopment of such services. W.lI" 0. cons j-ders it highly in,rortant
to render its asslstance j-n such a way as wj-ll enable the
country concerned to tal"e appropria.te steps towards the goal of
a
we1-1--balanced and
integrated
na-i;
He
al
Se
j-onal health service.
79222. since tire effect of a health progranme
to tire extent to whieh co-ordinated. efforts ire setistore.l_ated.
woz.k 1n
a number of other fields &s, for instance, ed.ucatlon, nutrition,
housi.n.g and general eeonomic deveroprnentr'there is a'tre1d. in
Iii.Ii.0. assj-stance to pror,rote the colordination of the pubtic
health activities in a country with othen economic and social
ac'u j-v'ities in the context of a general socio-econoruic programn0e.
223. Among incividuar projects of interest planned for
the perj-od under-review are tire iu::ther aeveropm""i-ot sy"i"*
of self--appraisar of ror:al i:earth sj.tua'bi-ons ii individual
"
countriesI assis'bance to a numbe:: of eorintries
in the organisation of l-aboro.tory servlces srt ths c]-iffer.ent ieveJs
of nalionaladmlnistration i a surve.y of yital and. heal bl.r statistical
services in the vari.o'us countrles, in or.cier -bo plan a long-term
programme of ass j.stance to countri-es; an<i a drive to p::oilote
adequate and safe eommun"ity rtater supp.Lies
224" r!_1. expected that w:i.thln the period. und.er revieg
governr,ients will seek the assis'tance of W.H;0. to eonvert campalgns
urdertaken aga,ins-b specific d.iseases and specialised services
into more integrated programmes.
(
ii )
Measures Asai_ns-t D j.s-g;lg.
225. 1lI.H.0" wil-1 c,rntinue to p:'omote the eradication of
communicable disease on a worrd-nide-or regional basis. rt is
consldered essential by the orgarrj.sation tirat the d.rive fo:"
:nalarj.a eradicati-on should. not-be re-l-axed ].est at this critical
PtaS? any remission of lrork shoul d lead to irretrj.evable loss.
Growi-ng evidence of mosqui-to resj-stance is an established .threat
to the success of the.pfogranime. Of the :L.Z6O,DOT r0O0 p"opl.;--in areas associatecl wj"ilr rnararj-a at t?re ena or r9b8,ltyilg
283-1137,000 had been freecL frorn the ri.lsease by eradicaticn
methods. Abou'b 650 million peopl-e are at prbsent living in
areas where eradicaticn projects are under i^ray and 1n varior-rs
stages of completi_on.
225" rn the penod under review, i,/.Ii.o. expects to render
to go'rernments in the rrorld.-wide eracii-cation
of smallpox. -!'or a large number of diseases, where erad
j-cation
as_;ret
feasibl-e,
assi-stance
in
control
wil-lbe
continued.
is-_not undertaltes
w.il.0.
to asslst not only in the operation or,;hese
worrd-'wide actirrities, but al.so in establi.shiig the appropriate
national and international machj-nery tc corrsolidate and raiintain
the results obtai_ned.
227. Wiih the present worl.cl-wide
in the control
of a number of non-commuriicable diseases,interest
esoecially d.egeneritive
diseases of the heart and circuJ-ati-on, aiie. matigrr.rri tuilours, itis_ expected that reclues'bs wi1.l- be receiveci. from-governments for
help in these fields.
lncreased. assistance
-BO(iit
esslona
)
228. The education and training of professj-onal and
auxiJiary personnel will remaj-n high on the list of tite organlsation's priorities,
shortage of ad.equately trained staff wi]f
impede the development of health programmes in many countries
for a long time to come. W.H.0. seeks to redu.ce this shortage
by helping to increase the opportrrnities for teacher tr.ai-ning
ai:d. encouraging the entrance of suitable persons into the
medical teach.ing profession.
It seeks to improve the type and
cluality of ed.ucatlon anong undergradr,lates and traj-nees, uiging
a greater emphasis on prevention and more attention to
environmental and. social conditions 1n their bearing on health
and disease.
229. During the period uncLer review the edueation of
auxiliary personnel will recej-ve j-:r'c:r:easing attention as one of
the most pressing needs, not only in. countries where the availability of such personrrel represents a remedy for the 1a.ck of
fu11y qualified staff, but also in well-developed countries
i^rhere auxiliaries are considered. no less indi.spensable. The
greatest emphasis will be pJ-aced on. the instruction of those
selected to teach auxiliari-es in their own countries.
23o. rnrring the period l,r/.H.0. will continue to clevelop
its fellowship programmes, consultant services, assistance tA
educational institutlons and exchan.ge of scientific information,
in order to help countries to reallse what th.eir neeri.s ar.e and
to promote such measures as are requj-red by national and local
conditions.
27L. In general wi_th regard to health programmes, close
co-operation will be malntained. between Id.H.0. and. u.N. r.c.E.F.
vrhich have complementary irrberests. Health projects assisted
by u,N.r.c.E.F. are undertaken by mutual agreement and receive
technical approval from hI.H.0. A \,tI.I{.0./u.lr.r.c.E.F" Joint
committee on Health Policy meets regularly. w.H.0. and F"A. o.
co-operate pa,rticu-larry 1n dealing with problems of nutritlon
and zoonoses (d.iseases transmissi-b1e between anima.ls and men)"
1'/.H.0. and r.1.0. co-operate on matters of occupational health
in- which a special expert committee has been set up. For the
rehabilitation of the handicapped, the United Nations (lncluding
U.N.f .C.E.F. ), I.1.0,,',TJ.N.E.S.C.O. and ,,/.H.0. co-ord.inate theii
activities.
4.
212, Nutrition is of central concern to both f'.A.0" and
well as U.N.I,C.E,F. Improved food consumption and
nutri-tion is, of cou:lse, a major purpose of F.A.0.rs work in
i,'tr.H.0. as
agri-cultural producti-on d.escribed above,
c).r
(JI
-
233, In the period und.er review, tr'.A.O. w111 be occupied.,
i-n association with Id.H.0,, with the assessment of nutritional
needs and. problems and. with advlce to governments on establishing and J-mplementing national food and nutrition policies.
Acti-vities of this type are schecluled for major expansion.
Surv'eys of the relationship between iII health and. malnutrition
w1-!-1 be primarily a W.H.0. responsibllity, while F.A.0. wi]I
co-operate through the stuily and analysis of food. consumption.
214, ?roblems of nutrition have to be attaclced not only
through the development of food. prod.ucti.on, but also through
educational activities, since nalm.rtrition is partly a problem
of habit and. i-gnorance. In such educational activitles F.A.0.,
W.H.0. and U.N.I.C.E.F. act j-n close co-operation. Work in
nutrition education j-s scheduleil for major expansion during the
years under revj-ew. 'Ihis must oe related. to 1ocal conditions
of food supply and to national- economic, social and cultural
factors influencing' consumptiorr. Seve:ra1 lines of attack wil-l
tr'or example, since children can
be followed simultaneously.
easily be interested in food, effor-ts will be made to influence
the food habits and consumpt-i on of communities through the
schools. Programnes in home economics will provlde a medium
for lmproving the domestj"c processi-ng, storage and preparation
of food and for encouraging better household. meals. Guidance
rnay also be given through communit}' development programmes in
improving family clj.ets a,nd Ioca.l methods of food processing and
storage. Fello'.rshlps will enable med.ical personnel ancl workers
j-ir other professions to receive specialised trai-ning in
nutrition.
235. fhe value of supplementary feeding progralnmes as a
means of improving the nutrition of certain groups in the
population, especi-a1ly mothers, infants"and. children, is well
established, particularly when they are linked with ed.ucationa]
programnes. Here the international agenci-es provide assistance both by advice on the use of l-ocaI1y available foods and.
by the actual supply of food from outsider &s in the IJ.N.I.C.E.F.sponsored programmes.
236. Inad.equate nutrition is one of the main problems of
children in the uriderd.eveloped countri-es and therefoie 1s one of
the ehief coneerns of U.N.f.C.E.F. The supplementary feeding
of infants, children ancl mothers through health eentres and
schools has been widely extended through the use of d.onated
supplies of skim milk" Suppl-ies of surp}rs milk are expected
to decrease, however, making it necessar:y for countries to speed
up their plans to provide d.omestic supplies for these programmes.
U.N.I.C.E.F. and F.A.0. expect to increase their assistance to
countries to develop tiie intlustrial processi-ng of milk.
Together with W.H.0. they are sponsoring both this development
and the introduction of other protein-rj-ch foods that are
82suitable for young children and relatively cheap - parb'icularly
fish flour and. oi1-seed presscake flours. Increased aicl wil-lal-so go to the training in nutrj-tion of all leve1s of personnel
lnvolved, from those who will direct and- strpervise national
programmes to those who will carry them out in the field.
5.
Educatlon
is a sense in which mos'b of the operatlonal
social work of the Unitecl Nations family may be
described as educational - certainly the whole fellowship prograrnme, technical assistance missions, the establishnent of
training institutes, and the publication of technical literature
may be brought und.er this heading. In the more formal sense,
educatj-on is prlmarily the responsibility of U.N.E.S.C.0.
277
,
There
economic and
23a. U.N.E.S.C.0,ts
progranme
i.riIt continue to give
special attent.ion to the expansion of national educational
systems in underdeveloped iountries. In latin America, the
ten-year Major Project for the extension of primary education
enters its third biennium in 1961-, and will reaeh its pealc
d.evelopment d.uring the review period. The project operates
through associated teacher-training school-s, regional seminars
and. fellowships, its focal point being teacher training.
New
proposals for somewhat similar projects 1n other parts of the
world, when adopted, wlll constitute the largest single expans j-on in U.N.E.S.C.0. rs regular programme in 1951-L962" The
formulation of these projects in the context of long.-range
national plans was the sr"rbject of meetlngs of governrnent
representatives of Asian countries (at Karachj-), of Arab countries
(at Beirut) and of countries of Tropical Africa (at Addis Ababa),
held in the winter of 1959-1960.
279, The need to expand vocational and technicaL education
at the secondary lever and at higher levers of technology is
refrected. in similar planning conferences, in requests for help
uncler the Expancled Programme of Technical Assistance and in the
proposals made to the special Fund for the establishment of
lnstitutes of higher technical education. Already, by eeirly
1950,, as_si-stance to several such institutes had been d'anted,
witir
C.0. acting as the e:iecuting agency.
24O. IIore at'tention will also be given by U.N,E.S.C.0. to
the development of higher educati-on in its member States. The
work already done in promoting teaching and research at the
universj-ty 1eve1 in the natural, social anil humanistic sci-ences,
will be supported by work on the organisati-onaI and. administrative aspects of the universities as institutions, and. on the
problems that confront them as pa::ts not on1.y of the national
education systems but also of the natlonal socj-o-economlc pattern.
U. N. E. S.
-85241. More generally and at all }eveIs, U.N.E.S.C.0.
wilJ. continue to promote the improvement of teaching and the
sol-ution of other internationally important ed.ucationalproblems. To this end. the documentation centre within the
framework of the U.N.E.S.0.0. Educational Clearing l{ouse wiJ-l
be strengthened in order to supply lnformation necessary for
U,N.E.S.C.0. rs various ed.ucatlonal programmes, The sys'bematic
exchange of lnformation about significant educational developments wil.l be continued., notably through the publication of the
World Survey of _EduqaEpA ( secondary education j-n 1950, higher
rough incleaslng assistanee io m6mber
States in setting up or improving national centres of d.ocumentatlon. Co-operation wlth international non-governmentalorganisations concerned with education wi1-l be further stressed.
More attention will be given to research on the improvement of
curricula and. teaching methods; to this end, national
ed.ucational researeh centres and international centres, like
the U.N.E.S.C.O. Institnte of Education in Hamburg and the
International Institute of Child Study in Bangkok, wiJ.l be
encouraged to rmderta,ke parallel research proiects, with special
emphasis on the problems of language teaching (includlng use of
the vernacular), the use of aud.io-visual aids, an.d other cruclal
problems requiring research on an international 1eveI.
242. U.N.E. S. C.0" is derLi cated by its Constitutj-on to
the promotion of human rights through ed-ucation and to the
encouragement of ed.ucation for j.nternational understanding.
Action on the former natter will be und.ertaken notably in international lnstruments concerned with discrimination in ed.ucation
(to fe acted. on at the General Conference, 1960), and. an
intensified. programme on the equal access of girls and rniomen to
educatlon. Education for international unilerstanding will be
geared to two main themes: teaching about the United. Nations
and mutual understand,ing of Eastern and 'rifestern cultural values.
In these subjects, the Associated School Projeets, ln which
over 200 schools and teacher-training institutions in forty
coixrtries were taking part in 1959, will be a main instrument
f or stimulating practical- cl-assroom experi-ments.
243. In out-of-schoo]- education, proiects at the
national and regional level wiJ.l be conti-nued, as weII as
activities of a general internati-onal charaeter such as international studies, serninars and fellowships. Emphasis t'riIl be
placed on a comprehensive progra,mme for the general education
of a community, including both adul-i;s and young people and both
those with and those ltritl:out formal edr-rca,tion.
244" \lithin its general policy of integration of the
development of education in the whole pattern of ecortomic and
social-development, U.N.E.S.C.0. pays special attentlon to the
relatlonship between what has been call-ed "fund,amental educationrr
and community developnent. Conti-nu.ed. support will be given to
_84_
the regional educational centres at Patzcuaro, Mexlco, for
Latin America, and Sirs-el--Layyan. United Arab Republic (Egypt)
for the Arab States, and the fr-rnctions of these eentres will be
increasingly orj-entated towards community development. Su.pport
will also be given to the establishment of sr.rch institutions and
programmes as school-s for adults, extra..nruraJ- d,epartments of
unirrersities, workerst clubs, youth hostels, and leadership
traj-ning centres. In South Asia, a project to encourage and
intensify the preparation and productlon of reading material for
newly literates will lead to the publication of a series of
interests. The development
of library services will be promoted. through regi-onal seminars,
training coul'ses, d.emonstratton projects, and. the publication
of operational manuals and. teehnical outlines for librarlans.
245. A world conference on adult education will meet in
1960. It wj-1l study the forms and. methods of adult eclucation
worle and assess then i-n relation to the developments j-n mass
med.ia, the resources available and the trends toward harmonising
voluntary and governmental- efforts. The conference will be
followed up through regional semina.rs and stud.y groups " Assistance wil-l be given to adu-1t and youth ed-ueation projects
of both
a governmental and. a non-governmental character. More attention
will be paid to research and experimental. studies, of r,rhich the
main centre of interest will be the ps;rchology of adolescence
and the social adaptation of young people"
246, In both the developed a.nd the underdeveloped countries,
there is arising serious concern at the state of sclence teaching in the school systems. The problera ls particula::ly acute
in many non-industrialised nations where there is a great need
for practical technologists (engineers and ;rpplied scientists)
and where the school systerns are completely inadequate to traln
such people " The 1ow standards of the universities in science
teaching are to a large extent a result of tire weakness of the
secondary sehools. The cause of this si.tuati.on, besid.es the
general lack of qualified seeondary school scienee teachers and
of lnadequate science 'ceachi-ng equipment, is the grea-b gap
between the ur&x of thinking of the pupiJ- in his horoe life and
that requ.i-i'ed of him in the science class. It is U.N.E.S.C.0,'s
aim to aid countries facing such a situation by maklng avaj-lable to them the latest methods of science teaching, by
books on eontemporary tliemes and
or6lanisi-ng regional conferences wliere muttral problems 1n scienee
teaching may be discussed., by organising refresher t:raining
courses for sclence teachers in specialised. disciplines, and by
encouraging popular interest in the ideas of science through
travelling scienee exhibits and the translation of the best
books in science at the popular leve1.
-85
247. In acldition, at the technica]- university leveJ-,
U.N.E.S.C.0. is giving advice o]'I cu::ricula, cholce of laboratory
equipment, and selection of key professj-onal staff in a number
of technological lnstitutes being set up with the help of the
Special Fi-r"nd. It seeks to develop ties between the j-nstitutes
it is assisting in the less developed. countries for the training of engineers and scientists and the lead.ing engineering
schools and societies in the more ind.ustrial countri-es,
24A. In the discharge of its eonstitutional responsibilitles, the I.1.0, is undertaking a workersr edueation
programme, which j-nvolves , dt their request, close collaboration
with, and. direct assi.stance to, workersr organisations. It
includes the provision of leeturers and clocumentation on labour
subjects, expert missions to advise on the ac'Lj.vities of
workers' ed'ucation, seminars and. traj.ning courses, fe1lowships
to trade unionists, and a loan service of f,il-ms and filmstrips.
An add"itlonal service provided by I.1.0. is the publication and
distribution o:fl teaching materj-al on the main sr-ibjects within
I,L.0.'s competence. It 1s planned to extend this service by
add"in.g materi-al on col.lective ba.rgaining, accident preventi on,
occupational health, wages, vocationa.l training and other tonics.
The organisation plans to publish a comprehensive workersl
education handbook and collaborates with U.N.E.S.C.0. in the
production of simpl-ified booklets on labour subjects for new or
semi-litera.te
249.
worlcers
.fur
.
important development in I.L.O.rs rrrork in
during the revieu, period is rcfl-ected in the 'oroposal
to establ-lsh iir Geneva an International Institute for I-,abour
Stud ies.
fhe institu'te would britrg toge-i;h.er persons having
experience in dealing with labor-rr nroblems in uranagement,
trade unions, public arhnj.nistration, the professions, tire
edr.rcational
etc. * for the intensive str"',dy and di-scussion
of i-mportant',rrorld.,
issi.res of labour policy. The eniphas.i-s would be
on an ana,lysis of problems and the formati,:n of policies to
d.eal with them rather than on technical methocls. The
educati-onal work of the institute irould be supported by the
promotion of research as requi-red ; a.nd it woul.d build upon the
work of the many nati-onal institutes and research bodies.
edr-:.cation
250. It has been noted above that aid for professional
educati-on anrl training is part of the work of each meinber of
the United Nations family within its particul-ar fiel-d ot'
conipetence. The::e is e\rery expectation that during the five
years under review this lij.ll be an increasing responsibi.lity.
Assistance in this fie1-il will continue to involver &s in the
past, fellowships, seininars , tz'aiiring cou.rses a,nc1 instiiutes,
etc. At thls s'bage the I.A.E.A. prograrime of fellowships and
exchange of sci.entists is the major ope,,-'ational prograrnme of
that agency. The importance attachecl to the educatiorr an.d
training of professional- health staff as par'o of -bhe 1,il.11"0.
-86programme has alread.y been mentioned (as
well as the signi:ficance
of education of the public in general forbhe achiever:rent and
maintenance of health improvements). F.r\.0. plans a ma.jor
expansion in agricultural educa-i;i.on, includi-ng, for exarnpl_e,
special assi-stance to colleges of agr:-cultrue to develop
fa"cilities and staff for.training in agricultural. ex'i;ension.
251, The Unlted- Nations, which has set up regional
institutes concerned wlth training in such fields as stati.stics,
d,emography, public admi-nistration and housing, and_ has
established a programme for training Af::icetn economists at
Headqua.rters, plans to continue aetivities of thls type"
E. C.l.A. joJ.ntly with E.P,T.A. will expand i.ts Traininp; Centre
in devel-opment economics. An in-servj-ce trainlng of
economists will be establish.ed. in E.c.A.F.E., and E.c.x. intend.s
to expand its in-service training programme. E.C.L.,A. and
E.C,A.F.E. jointl-y with U.N.E.S.C.0. will undertake surveys of
teaching of economj-cs ln their respective regions, looking
!h"
toward lncreased traiirlng of economists in the practlcal requirements of econoin:!-c deveJ-opment.
The estab-l-ishmer:t of trainlng
irrstitutes, as noted above, is one of the neijor functions of
the Special- Fund . The International Atoinic Energy Agency, in
co-operation with other lnterested agencies, has hel-d a number
of training courses, and p.l-ans others jn such matters as the
application of radio*isotopes to agrj-cultur.e and medicj-neI
reactors; health physics and rad-iation prctection; ancl
carbon-14 dating in archaeological research.
_87_
6.
of !lork..an4_Employment
252. The promoticln of measures for a progressive improvement
in the condj-tlons of lrrork has been one of the main preoccupati-ons
of the l.fr.O. slnce its inception. The great majority of the
itrternational labour Conventions and Recommendations adopted by
the International labor-rr Conference, and of the resolutions
adopted by subsidiary organs, deal with the d.ifferent aspects of
this problem, such as the regul-ation of hours of work, including
night work; weekly rest; ho11d.ays with pay; minlmum wages;
equal pay for equal work; the protection of wages from unjustifiable red.uctJ"ons I saf ety anil health at the work-p1ace; protectlon of women and young worliers; the workersr rlght to organise
and. bargain collectively; and labour lnspection. Activity of
this sort will continue with certain developments that may be
Ge_nera1
Conditj-ons
anticlpated,
/. \ In the near fr.rture special- attentlon wj-11- be given to
(i)
promoti.n€J a programme for the progressj-ve reductj-on
of hours of rvork with a view to the attainment of
the forty-hour week as a social norro, wlth due regard.
to the levels of economic developrnent attained. and
to the widely different practi-ces in the d"ifferent
countries in the regulation of hours of work, whether
by legislation, by collective bargaining or by other
means. The International trabour Conference is
sched.uled to consider tliis subjeet in 1960 and l-961
with a view to the ad.opti-on of an internationaJ
instnrment.
(ll)
(i:-i)
I.1.0. ts future work lies along two
lines. One is to secure the wld.est'v/ages,
appllcation of
the existing Conventions on l{j-nimum
Ectrua1
Remuneration for Idork of Equal Va1ue, and the Protection of llages. The other 1s to continue research
and. analysis vrith a view to the preparation of reports
and publj-cations for the guidance of governments.
One of these will be a comprehensive stud.y of the
relationship between wages and economic stability,
Others wilJ. cieal with such subjects &.s systems of
wage regulation, wage d.ifferential-s between men and
women rtrorkers, and the speclal problerns of wages
in the underd.eveloped countries.
0n wages, the
Ttiere are already several international- standards
of occupa.tional safety and health, but there are al.so
serious gaps which will be the concern of the I.1.0.
in the I'uture, for instance, 1r agriculture, forestry
and civil- engineering, At the same time, because
of rapid technological change, the existing standard.s
will have to be kept under review. In 1950 it is
probable that an i-nternational lrrstrument on the
protection of workers against i-onising rad.iation wilJ.
be adopted,
Besides stand.a.rd-setting, the prepara'bion
of
hanri.books
the dissemina-ti.on of technical information will
bc used to promote occupational safetiT. S'bud.ies
wil-I be condircted of critical problems i-n the fie-l-d.
The I.i.0. has set up an Internatlonal Occupational
Saf ety and He al-th Information Centre, in co-operP"tlon
with the International Social- Secrrrity essociation
and a number of national- and international organisations. Questj-ous of hea,lth and. safety wiJ-] also
continue to be a part of' the I.L.0,ls technical
assistat:ce plrog;ratiule, 1r-tnariJ-y in the form of
regional scmiitai::s and studlr courses, and co-operation
with 'u'l.l{.0, r,iill be meinta-Lncd as in the past.
W.I1.0. ts in'i;eres'i; in oecu.pationer.l- health lies not
on}y in the probleris of disease and infirmitl'.associated with cond.itlons in the place of employment but
a-l.so in the fa.ct that ttuch occupational- disability
arises from condltions not specificallSr related to
the jobr such as irifectious agents and emo'bionalfactors in th.e horce environmen.t. ltl.H.0. places
speci-al emphasis on establishing, in co-opere.tion with
I. fJ.0. , occupational heal-th j-nstitutes which combine
specialists from various disciplines into one tearn.
(i-r) The I.l.O, programme dealing; with the cond.itj-ons of
employment of seafarers coritpz'lses stuciies of the
rnanning of ships, the social imp'l is.lions of the introdu-ct:Lon of nuclear proplllsi<-rn in shippi-ng, and aj-r
condj-tioning in rel-ation to crell accommoclati-on. The
I.1.0. is also uirdertaking a vro::Id-wj-dc study of the
existlng welfare flacj-Ii-Uies for seafarers with a
ancr
to ma.l.iirlg proposa-l-s designed to bri-ng ahout
effective j-nter.'ratiorral ec-operation on this matter.
In co-operatiorr nith 1n/.H.0., the I.1.0. corttj-nues to
gj.ve attention to seafetrersr hea-Lth.
(") fhe I.fr.O. ha.s recentllr clralrn up a new coinprehenslve
progrermme of' act j-vities for non-iuanual worlcers.
This is a sector which has greatly expanded 1n recent
year:s. The prograirmc vril-l include a stucly r:f the
i:roblens a,::ising from tecnrrological. changr:s in this
sector, employment anci unenployrnent probl-ems of
ol-c1er non-nanual worlcers r and researckr i-ntc the acute
problem of the rreducated unemployedil in. developing
countri-es. The lorm and. content of the contract of
employment j-n non-nanual work, certain soeia] security
problerus, arid qtrestlons of healbh and. ?rygiene in shops
a.nd oft'ices a.re al-so in.cJ.uded i-ir the programme.
The l-ertter sub j cct may be rrJ-aced on the agenda. of an
early sessj-on o-f the Conferer:.ce wlth a view to the
ad.optJ-on of international stancla-rd.s.
vi-ew
_89_
In additlon to subiects of concern to non-manual
workers i-n general, the I.Ir.0' will stud'y ihe problems
of spe.cial categories of these workersr lncluding
technical- and. supervi-sory staff , journalists, workers
in the distributive trades, inventors in sal.aried
employment, certain problems of public servants
in particular, teaching staff. fhe position
publ-ic
servants in relation to conditions and
of
stability of eurpl<lyment, salary levels and professional status, and. the right to organise and bargain
coll-ectively, will be examined. The I.I.0. is al.so
pursuing itb'work, in co-o'paration with U.N.E.S'C.0.
and ttre Berne Union, with a view to arriving at a
joint internaitional j-nstrument for the protection
of performersr rights,
and.,
. As noted. elsewhere , i. tr.O. t s f'uture programmes in
regard. to cond.iti-ons of life and work in rural areas will- be the
su6;ect of a general discussj-on at the 1960 Conference.
255
7.
Social
Eecu_r:L'Ey
254, Social security is primari-Iy a field of operation of
the I.l.O., although both the United. natioas and 1{.H.0. have
definite interests-in the subject. The I.1.0. intends to continue to d.evelop international Conventions and Recommendati-ons
in this d.omain.- Pre-war internationer,l- Conventions wi].l be revised to take account of new circumstances and new forms of social
security that have d.eveloped. lfithln the next -few years the
I.I.l.O. expects to undertake the estab:l-lshment of new standards
of social security for migrant and afien workers, So as to
guarantee them equality of treatment with natj-onals and ensure
j.rr tl:.e course of acquisition anrl payment
f,he maintenance df rigtrts
-ft
will pursue and intensify the varj-ous
of benefi-ts abroad.
social security programmes, inelud:-ng research projects, th?-t it
has been carrying out on a regj-onal basis, pari;icularly in the
European region.- The I.I,.O. social security programxne for less
C.eveioped. r6gioirs becomes more inportant as more and more countries
achi-eve subsdantial ind.ustri-alisatlon. To some of the countries
in these reglons the I.1.0. wilJ- give technlcal assistance related.
to the plar.'ning and establishment of social- seclrrlty systems
Many sucf, countries, however, have already enacted social security
of
legislat j-on and wheie this is the case, the mai-n preoccupation
practhe
asslstance
in
on
and.
give
to
advice
the I.l.O, wil-] be
tical application of J.egislatj-ve measures, i-ncluding the extension
of the eiisting schemes to additiorial categories of the population,
the lmprovements of the administraiior:. of the schemes and. the
maintenance of their finaricial equilibrium. The I.I'0. intends
to complete this part of its social- secrrrity progralnme through
seminais and technical mcetings to train and assist social security
ad.ministrators and technicians.
-90255.
of the United Nations work in the past on economic
of the family and. measures for groups in
the aged, the hand.icapped) concerned forms of
public or soclal assistance that come under the general heading
of social security. There has been a decreasing emphasis on
this type of activity in the Unlted Nations, however, with the
grol,ring a-i;tention being paid to the problems of l-ess developed
areas, where economic assistance to the needy on a large scale
is not normally feasible because of the l-ack of public fund.s;
there is a correspond.ing lncrease in emphasi-s on ways of improving
the family leveJ.s of livlng in these countries.
256, This trend, recognLses the impractlcabili-ty of attempting to establlsh comprehensive forms of social security, based.
on the patterns of j-ndustrial states, in areas where the financial
Much
measures Ln favour
special need. (e.g.
and administrative rcsources and the educational pre-conditions
among
the population are lacklng.
257, W.H,O. is concerned with the ques-blon of the cost of
med.ical care, ivhich has been steadily rlsing i-n most countries
and has led to increasing intervention by governmerrts ln the
financi-ng, organisation and administration. of meili-ca} care ser-
vices. Where medical services are covered. by insurance.or
directly provided by the government, they are a form of social
security. W.Ii.0. is currentl-y planning, in co-operation with
the United. Nations and the I.1.0., a long-term study based. on data
from several- countries th.at have different approaches to the problem of the governmentrs role in health insurance and med.1ca1 care
and. that are at different stages of economic and social develop-
ment.
8.
Socia1 ServiceE and Social- Dqgenqe
258, Social rrrelfare advisory servlces have constituted a
field of actlvity of the United Nations since the beginning of
the Organisation. Certain responsibil-ities in this field were
1n fact inherited. from the league
of Nations (in regard to
chil-dren) and from U.N.R.R.A. - The origlnal concern was with the
protection of child"ren and other vulnerable grou.ps, such as the
aged., the handicappedr migrants, etc. Early programmes of the
United Nations in the realm of soclal wel-fare were directed. toi
rrrards these special groups. with the shift of er,,"phasis to the
development of the eeonomically l-ess developcd countries, however,
there has been a corresponding sirift of emphasis in the social
scrvice
programmes.
259.
The question.of
policy for the social
servj_ces
in
connection with the development of less developed countries has
becomc itself an issue of major internatlonal- concern, and
committees of experts have been convened to advise on it.
Final
determinations have not been reached. but the d.irection of programme development is fairly clearr &s indicated. in the United.
Nations appraisal.
260. The emphasis has shifted from special projects concerned with vulnerabl-e groups to a consideratlon of social welfare
problems in the context of d.evelopment. The concern is no longer
limited to protective and. remedial action but has expanded to
cover more positive forms of actj-on in relation to problems of
urbanisatlon, industrial-isation, and the disruptive changes in
social and family structrrre that tend to go with economlc d.evelopment. A major ernphasis in the future wil-l therefore be upon
social services in relation to the pl.anning and i-mplementatlon
of broad prograrunes of development. Ihe family will be the unit
of primary consideratiou and the mai-ntenance and raising of family
levels of l-iving will be a main focus of action.
26L. A second. emphasls will be upon the organisation and
adrni-nistration of social services, since it has become evident
that it is more important to deveJ.op the administrative capacity
to ci.ea1 with socj-al welfare problems than to advj.se on speci-flc
techniques where there ls ]ittle or no possibility of followthrou.gh. A thlrd emphasis in the future wi1-t be upon .trainlng
for social worlc - the lack of personnel- here as elsewhere is a
major block to the development of appropri-ate social services.
262. In the newly developing countries embarking on a proSralome of industrialisatlon, properly organj-sed welfare servj-ces
for lndustria] workers may not only help to stabllise the labour
force in industry and increase its efficiency but may also help
to set the pattern of the subsequent organisation of such servlces
for the community as a whol-e. The I.1.0. has specially concerned
itsel-f with this subject and is co-ordinating lts work wj"th that
of the United Nations in the broader sphere of national social
services.
267 . U. Iil. I . C . E. F. policies , carrled out in co-ord ination
witli other agencies as appropriate, are increasingly dlrected by
the princi-ple that the needs of children cannot be isolated from
their envlronment and that measures for their health, nutrition,
ed.ucatlon ancl welfare should fit into broader measures for the
improvement of family and community 1eve1s of livlng.
A cl_oser
relationshlp is being established bbtwe6n'U.N.I.C.E.F. and the
Bureau of Social Affairs.
U.N.I,C.E.F. has recently adopted. a
policy of aid for social seiviceb for children, The fundamentalobjectlve is to help countries to develop natlonal systems of
social services to strengthen family life.
Special attentlon
is glven to care in institutlons, day-care centres and. other
methods of caring for children or.rtside the horie, as well- as to
methods of keeping tl:.e family together and improving the care of
chilclren in their own homes. U.N.r.c,E.F. will also give more
attention to the problems of children in cj-rcumstances of rapid
eeonomic and social change, particularly of urbanisatj-on, when
fami-ly l-ife is subjected. to unusual stress anrl. child.ren face
unusual dangers of a social- and cuttural nature. The I.l.O. 1s
givlng special attenti-on to the problems of worl<ing mothers 1n
provj-ding proper care for their children.
92
Irr. social defence crime, d.el.inquency, etc. - the
of the United Natlons must be r,"iewed in ihe contex'b of
a world-wide increeise of cri-minal behaviour, particularly of
juvenile d"eli.riquency. Thi-s jncrea,se is perharps more noticeabl-e
rn the more developed countrles, but is reported al-so as a
serious problem in the l-ess developed. countries in the process
of j.ntlustrialisation aircl urbariisaticn. The proposed future
prograrcrne will place grea'Ler onrph*sis on the preveriti-on of crime,
especially jr-rvenile dc"l.inq'uency; on direct a.ssistance to
goverrrrnents i-n training persc.rnrrel-; ancl orr action at the regional
leve]-, through reg'i6na1 lr:sbj-tut.-.s-; for social d.efen.ce. The
pro j ected wolk of I. f,.0. c:'r youtir policy and of U.lI. E. S. C. O. on
the psychology o:f .r.dclesceilco and -i;he soeial- r.daptartion of young
people bear closcly on th.e qur.:sbion of .iuvenile deli.nquency.
254.
prrogramme
oJ'
Narcotics
265, The control of the trafflc i-n narcotic drugs has been
recognised as appropriate to international- agreement for ncarly
!0 years. In L946 the functions devo-l-vlng by treaty on the
league of Nr:tions and the Ot'fice In'bernational-e drllygilne Pr,rbliquc
llere tra,nsferred. to tire Uni-ted idir"i;ions and 'bh.e World I{ea1t}r
Organiza,tlon. Cortain dutj-es and responsi'bilitics are l-ald by
trea-by on the Unj-ted. Nations control organs (tfrc Cominission on
Ilarcobj.c Dru.gs, lhe Pe:r'marient Central Opirrm Board, and the Drug
Supervisory tsody) and on the W.II.O. These dutics rel-ate to the
limitation of narcotics to medieal and scientifj-c purposes; the
licensing of their manufacture, i-rrport, export and- dlstribution;
the rcgulation of su,opl-ies; and thc punishment of traft'ickers.
Sj-nce thesc activitics are in imlrlemeir'r,atj-on of treab-i.es -bheir
future is bound up witli treaty obl-igations; there is a plan to
hold a plenipotentiar;,r confercnce in 1950 to adopt a single
convention, combining the con'rrerttions at present in force. The
work itself is -l.ikelJr to iircrease duri.ng .Ll:re years under rel,iew
because, among other rcasorls, thc number of narcotic subs-ba.nces
und.er j-nternational coritrol- j-s on the inc:rcase ano because improvemen'b in 'branspolt facj-l-j-t1cs ad.d.s to the opportunities for illicit
traffic.
266, The tirrited Nations -rrork i-n narcotics control is riot
limited bli its treaty obligations. lJtrrdics a].c conciu.cted into
drug addictioir, synthetic drugs, opiruo, cannabis, coca lcaf, etc.
A lahoratory is maiirtaincd for detemining the geograph.ical
origin of opium seized in illicit trnfflc and. its *ork is being
extended to research on carina'bis. i\ew substences not und.er i-iternational control but prescnting gcmcrrliat siririlar. problems such
as the barbiturates, a.mphetarnines end tra,nquill"isers , are kept
und.er revi-ew.
267, With regai'd. to the broad pieture for the fu.ture it 1s
that the control- of liclt nanufacture and d.istribu.tlon
is working efficiently but that greatly increased attentiorr must
be g:Lven to two problems: the treatrrrent of drug ad.c1j-ctj-on
(pa:r',,-j-cuJ-a::ly 1a.r'ge-sca1e social addiction in some of the underdevelcped countries ), and traffic drawing its supplies directly
fro::: i].licit crrltiva l;i.on an.d manufacture. The illici-t cultivation of narco bi-c plants is a social and economic problem irr the
sensc that it is of'ben a major source of Ij-velihood. for low-income
grcups in the ruz'a1 aleas of undertlcveloped- countries, including
migratory tribal- grou.ps difficult 'bo keep uncler view.
268. Progress ir. sclvin,q thcsc proi:l-ems ,,,ri11 cafl for
increasecl stuclies and for increasecl technical assistance. A
certain amount of tcctinica,l assistanoe iras for many years been
given under varj.ous resolutiorrs of the Councj-l- but rccently it has
come to be regard.ed. as so promising a means of attack (the maior
bencflts from whlch often accrue to corrn-bries other than those
actually requcsting arssista.nce ) tirat special budge tary o:'ovision
Assj-stance is being given both in enhas been made for li.
forcement measures an.d. j-rr the deuelopment of substitu.te crops.
269. Collabora.tio:: between th.e agencies conccrncd, the
United Neitlons (mainly administrabj.on. and enforcement), tl.H.0,
('i;rcatment, rehabilitatj-on and the prevention of ad.dictlon), and
F.4.0. (substitutc crops in former opium, coca leaf or cannabis
growi-ng areas ) wil-I contlnue as' i-n the pa.st.
consi.dere<l
10. E$-egee
27O. Thc rcfugec coacs within the purview of the present
inquiry because an internabicnzrl ohligation has been recognised
and assumed. i.n rcgard to thc ecoironj-c and socia] eircumstances
of his plight. At prcsent the work of the United l'trations for'
refugees is divided be bvieen tite lte1j.ef and l'/orks A;ency for
Palestine Refugecs in'thc- Near East, which l:as wcLl o'/er one
milJ-ion refugees in i'bs care, aird the Off ice of the High Commissl-oner (principalJ.y concerned. with Europe, lrlorth Africa, and the
Far East ).
27L. The High Commissloner has over one and a half mil-I1on
refugees under his mandate and in addition is asked to ilse his
good offices for others not coming directly within his coapetence
(there ere, for j-nstance, dt l-east onc mj.lJ.ion in Hong Kong).
The vrork of Iegal- protectj-oi:., emcrgency reli.ef , 'roluntary repatri-ationr T€settlement and local integration i-nr.rolves coll-aboratlon
betweon the United. Nations, the cr:untz'ies rlirectly concerned ,
the specialised agencic.s, roany rron-govcrninerital organlsatit-rns and.
other internationa,l bodies such r'"s thc Inter-governmcntal Commj-ttee
for
European Migration.
-
L)4
-
272. fhe appraisal period overlaps the Worl-d Refugee Year
to mi-d-1960). The Secretary-General has app6irrted a
Speci-a1 Representative to assist governmental, inter-governmental,
non-governmental participation irr this scheme. Seventy-slx
counbrj-es and L2 temitories have already announced 'bheir actlve
participation. Seventy-seven voluntary o::ganisations are also
taking part, the largest number ever to associate themsel-ves
in a single campaign.
'273. How far the normal- worle of the l{igh Cornni-ssloner,
intensified by the spccial effort of the {itrorld Refugee Year , can
by L964 solve the refugee problom uncler his mandzite-ls a ma'tter
speculation. some parts of it, the clearin64 of the camps in
Io,
Europe, for example, are regarded as goals within the poss:-bility
of achievernent. fhere is reasoriable hope for other substantial
achicvements in the solutlon of the problems of non-scttl_ed.
.
(mid-1959
refugees.
274. The l{igh Commissioner rccognises that there is stillto be done in-irnproving the lega1 status of refugees, particularly with regard to the right to worlc, the fnciliration of
travel and naturalisation. The continuing succcss of settlement
ls obviously postulated. not only on 'bhe adecluate provj_sion of
funcls but also on the economic hcal'oir of the countries of settlemuch
ment
275, Furthermore, although the work of the unitcd Nations
in thls matter is entirely humanitarian and. non-political lts
success or failure ls clearly not unrelated to polibical developments. Fina]11,, the qualifled optimism that within the five
years under review the problenr of refugees coming under the
mandr'rte of the Higir Commissioner may cease to be -a major reproach
to the conscience of uianlcind rests on the assmption lhat tLe
period will not witness the creation of new refugees.
275. Even though this hope may be rearlsed., thc problem of
the Palestiniatn refr.lgees remai-ns wibhout iumediate visible prospect of solution.
D.
tsROAD PROGRAIII/ES
0F SOCIO-EC0ll0t,1lC
DE\rnLOptvilr,-NT
277. Witii growing interest in combined or concerted action
to a.chieve ovcr-all developmcnt, and in the interdcpendence of
ecoriomic and social fac'bor.s of development, a numbei of new prograrnmes have errerged in this general area, and ad.ditlonal ones
ray be anticiprrted. Thc regionar economic corlmj-sslons for
Africa, Asia and the Far l,ast, and latin America have recently
l-ncorporated in their terns of reference the ,'sccial aspects "
of eeonomj.c dcvelopmcnttr.
278. After i-nter-agency disclrssj-ons of coneepts and prlnachieved in the conmuni-ty development prograiilne, which is a
mul-ti-subject programne that has aspects conccrned with agricultural prod"ucti-on, agricultural extenslon, ed.rrcatiori, social work,
health, sanliation, home economics, etc. I.l.0r, F,A.O.,
U.Id.E.S.C.0. and td.lI.0., as well as the regional economic ggmmj-ssior:s, are co-operating r,rith the United ltlatibns in tlii-s prograrrune,
wirich ln its operational phase is only about five years oJ-d but
which'has provoked wide-scal-e lnterest anong th.e governments of
less d.eveloped countries. Future actiori in 'th.is f it: Id i.s anticipateil along the follovring l-ines, i.nvolvi-ng iii each casc practica,l assistance 'bo governments as r,.Iell as supportitrg studies:
(a) iloser J-ntegration of cornmunj-ty dcvelopmcnt poli.cies with
natlonal and. regional dcvelopnent plans, together vr:tth a
stud.y of programming techniqucs I
(f ) community devr:lopmcnt j-n reJ.ation to the economic development of nrral areas (e.9. in relatj-on tr: co-operati-ves,
small-sca1e ind.ustrie s, land. reform);
(c) social aspects of commrrnlty dcvelopment (c.g. individual
and group attitudes and orien-i;atious in relatlon to economi-c
and technical- irinovations, higher lcvels of nutrition,
ci-pIes, a conslderable degree of co-ordination has now been
housing, etc. );
irr relaticin 'to resource developurcnt I
comraunity developmcnt in rela.'bion 'bo urban d.eveloproent;
(f ) public administrati-on aspects of developr:rent;
(s )
trainj-ng.
279, Thc Andean-Inoian progranxme under the I.I.0. is also
of a broad multi-subject character, involving agriculture and
rural- ind.usbry as wel-l- as education anct 'urainin61, hcalth, social
The United Nations, F.A.0.,
i,reJ.fare, and various othcr subje cts.
U.l[.E.S.C,0. and \'l.H.0o il.re co-opcrating wit]r I.1,0. in this prograrnine, whicir is being supportcd by technical assistance and , ln
respect of certain elemcnts, by the Special lrund and by U.N,I.C.E.F.
280. Urbanisation, which, as noted, above, embraci,s a complex of interacting problems of an erconomic as well as a social
charracter, is currently belng exar,rined. by the United N:rtions and.
specialised. agencies with a vlew to the establ-ishment of a concerted actir:n prograrune at the lnternatronal lcvcl-. A survey
mission on urbanisati-on in the Mediterranean region, co-operatively
spcnsored by the United Nationsr 1.f.,.0., F.A.0. r U.I[.E.S.C.0.
and
)
(e)
(d-
community de'relopment
W.H.0., has recently been coil,rleted, and has made recommendatj-ons urging co-ordina'6ed irrternational- a.ction,
-96
261. The United Nation.s is underta"king a project on bar.lanced
economic and socj-al developnent, whlch is ccncerned primarily
with the inter-relatlons of econonric and social factors from a
policy point of view (questions of investment policy er.nd budgetary
policy, methods of J-ntegratlng ccononic and. socierl ilevelopr.rent,
etc.). It j-nvolves case stuclies, rigionlr,l senlnars arnd. working
.oartJ-e s, and an <lver-aIl- report.
282, U.N.E.S.C.0. in its Social Sciences Programae has a
project dcaling irrith the applica.tj-on of the social scienccs to
problerns of economrc and socj-al dcveJ-opment. tlr,e main purpose
of the project j-s to stiinulate scien'tific discussion of ancl
research in the various aspects of thie complex subject a"nd to
bring to the attention of governrien'i;s thc }:inds ofhelp which the
social sciences can render tothose engagecl in the formulation of
policy. This projec'b includes tirc major i-tems: one on the
social--implications of industrialisation and tcchnological change
(including urbanisation), and tire other orr balanced scclal- and
economic d.evelopment. fn the executlon of this l:ltter part of
its programme, U.N,E.S.C.0. is abl-e to contrj-bute towards the
Uni'bed. Nations project mentioned in the previous pai:eLgraph,
283. Tire I,1.0. also has u.nder sturly various aspects of
the social implications of technological developmen'b, particularly
as 'uhey affect workers. It is ccncerned in this respect with
such things t-,s i;he ncw requirenents for vocational- and technical
training resulting fron tlic changes 1n the occupatlonal s'uructure
brought about by innovation.s such as automation, anrl the corrsequences to enployment of technological changes. Herving ma.de
genr:ral surveys of the inplicatlons of agri.cultural rnechanisation,
au-bomation in lndustry and the dcvelopment of industrial uses of
atornic energy, the I.1.0. j-s curren.bl.y procecding with an lndustryby-industry examination of new probleras that are arising. It has
thus dealt with the coilscquences of nechanisation and autona,tlon
in office worl< and will shortly deal with the sociel consequences
of changlng methods and. techniques in raih^iays and rcad transport
and in the applicatir:n of atomic power to shi-pping.
E. PUBIIC ADI\IINISTRATION
284. Wirile fron early days publ-ic ad;rinr-stration r,ras regarded
?P an approprla,te cc;iaponent cf the Uni'bed Natj-<iris prograrune, the
first steps taken towards the creatlon at headquartcrs of an
rnternat j.onal Training centre, p:"o.ued. a fal-se start.
since then
adninlstrative techriiques have been the subject of a great many
technical assi-stanee projects through both the pro.rision of experts
and the award of fell-owships. The main trends, which seem likeIy
to contlnue during tlie review perlod , arle: first, ao.vice to
governmen'bs on both general and specific probleris of admlnlstration - in some j-nstances expert arlvice to commissions of reforn
-97
establlshed by governmentsl second., the se'bting up, or the aid.ing,
of national and regional training centres. For these institutions the United Nations provi-des teaching staff , d.ocumentation
and fellowships, and while i-n each case the aim is to wlthdraw
internatj.onal heI1r gradually, there 1s no doubt that the denand
will- be a continuing olle r
285. Although a certaj-n amount of research is conducted
at headquarters, increasing use is being made of non-goverrurental
organisations such as the Internati-onal Insti-tute of Adninistrati-ve Sciences at Brussel-s and. the In'ternational Political Science
Assoeiation at Geneva. In collaboration with such bod.ies the
United. Natlons has investi5lated. many questions including the
decentralisation of governnent seruices and local goverrunent.
This type of col-laboration wilJ. corrtlnue,
286. However, the most significant new feature in the United
Nati-ons programme of public admj-nistration has been the recruitment and the partial finaneing of personnel- to perforro executive,
operational and administrative functions as enployees of the
requesting governnents (O.P.E.X. ). This servj-ce j.s available,
at their request, to developing ccuntries suffering from a
shortage of traj-ned executives. Although th.e beginni-ng has been
modest, the volume of requests inclicates that the service trill
expand. Slnce the posts to be filled are often in departments
that normal1y deal-, in international rnatters, with the specj-alieed
agencies, O.P.E.X. calls for very close co]laboratiotr withln the
United. Nations farn11y.
287. In nearly all the spprai-sals reference is rnade to
problems that are administrative 1n character: for exampJe,
!i.H.0. stresses the necd for efficient health servi-ces, I.1.0. is
concerned with efficient servlce in labour lnspecticn, employment
and soci-al security, I.A.E.A. ls assisting in the estr:rbllshment
commissj-ons and tr'.A.0. atbaches partiof national atornj-c energy
cul-ar lmportance to tta suitable organlsa.tional- structure for the
I[inistry of Agricu]-turerr. The Unj-ted. Nations sees inter-agency
coll-aboration in these uratters as one of the r:ost promising
developments for the perlod under review,
I" FINANCING ECONOMIC Al.iD SOC]AI PROGRAI{MES
288. In ti:e field of fi-nanci.ng economic developnent a number
agencies
of
in the Unlted idati-ons faiaily, such as the International
Bank for Reconstructi-on anct Developnent, the International Finance
Corporation, and the International Monetary tr\rnd, are playing
lmportant roles. Hc.rwever, the present report can cover only the
activities of the agencies under review in the appraisals j-n
this case, chlefly the United iVations.
-98289. As rnentioned earlj-er, there ha"s been conslderable
the United. Natlons
pressure to establish urrder the auspices ofrr[jUN]'ED")
(such
as
to finance
a ma;or capS-tal development fund
projected
the
econornj-c and social- clevelopnrent. Notwithstanding
Association,
it
establishment of the Internatj-onarl Development
is likely that this question will contlnue to occupy attentlcn.
Mcanlrhile, the activity of the United Natiotrs in the field of
finance --apart from the pre-investment activity of the Special
Fund. - is concerned largely with studi-es and with technical
assistance. A report on i-nternational economic aid., mainly of
a statlstical neuture, ie alsO publlshed. annuallyr a.nd. is 1ike1y
to be expernded in the future es part of basic docunentati-on for
d"iscusslons in thls fie1d.,
concentrated on
29O. The Uniteil }iatlons work orj.ginafly j-nternational
and
tax
public
finance
statistics
the subjects of
of
the
league
Nations.
from
ovor
relations, which had been carried.
In recent years, under the iurpact chiefly of the d.evelopnent of
the tcchnlcal assistance programrce, emphasis has shifbed to such
matters as budget classification and management, tax reforra, and.
the international flow of prlvate capital. In the next five
years, the United Nations 1s plarrning in these areas a. f evr selected
long-range studies and a broad programme of technical assj-stance
acti-vities.
irr financial matters will first of al-I be
for periodj-c reports on
the internatlonal- flow of private capital. While these reports
r+il-} dlscuss the main determinants and. characteristi-cs of the
flow of private capital, a more searchj-ng anal;rsig has also been
initiated. A preliminary report on. thls question, currently
under preparation, will- examine the measures which the governments
of capital-supplying and capital-receiving countries have taken
or contemplate taking 1n order to encou-rage an expansion in the
flow of foreign prlvate capital to underdeveloped countries.
This report will be based on a survey of the types ilnd foms of
foreign private i-nvestnient which underd.eveloped countries. are
most interested in attrac'bi-ng and, j-rr which foreign investment is
most likely to be forthcoming. In view of the i-mportance of these
problems and the corlplexity and vari-ety of conditions under which
they arise in the different und.erdeveloped couutries, it is expected that this type of research will conti-nue to be given a
high prlority.
292. Continuing importance will- also attach to the problens
of the domestic financlng of econouic d.evelopment. This wil-I
also respond to the growln6S interest in all aspects of the industrialisation process manifesbed by the Econon,ic and Social- CounConsiderable assistance j.s already being givcn to governciI.
ments in this area, on the basis of technical assistance requests,
291,
Research
guided by the General .Assembly requcsts
-99€.9. on the structure, regulation (legislation), and operations
of flnanci-al instituticns especlal1y in the fields of insurance,
banking, capital markets. Flnancial experts are al.so frequentiy
involved in advising on the bankability cf projects, especially
1n industry in co-operation with engineering experts.
2g3. In the monetarSr fieId. United. Nations technical ass j-stance is given chiefly tc countries that are not yet members of
the Internatlonal Monetary Fund. i-Lnd. the Internati-onal lSank for
Reccnstructiorr and Development, This assj-stance is also d.esign.ed
to meet the desire of these governaents to improve their crediiworthiness and generally tc becoile better able to mcet the requirements of the Ber,nk and the Fund.
294, The principal dj-rectioirs of future activities concerning taxation can be readily anticipated. Research on flre tax
factors that inpinge on the size and nature of foreign private
investrnent and on the measures that governments could take to
lnfluence the fl-ow of such investment wil-I renain an integral
part of the couprehensive studles of the international flow of
prlvate capital. Studles of the taxation of agri-cultural- property and actil,'itj-es are calIed for in connecticn with the report
on land reforn requested by General Asser:ib1y resolutj-on 1426 (XfV);
they elre also rerlui-red in response to the growing interest of
governments, especially of newl.y independ ent countri-es, in reviewing their traditional taxes in this field fron the point of view
both of the revenue prcduc'bivity of the taxes and of their effects
on development incentives. I'ina11y the trend. towards regional
economlc integratj-on ls ralsj-ng important new questions on the
harnonisation of natiorral tax measures and their ad jus'r;rnent to
regicnal developnent poU-cies. Technical assi-stance i-n taxation
wilr continue to be d.omlnated by the needs of governments to
strengthen their adrninistrative nachinery and to contiriue 'uhelr
reappraisal of tax policies in tl:e light of changlng development
aints.
2g5, In budgetary research, the analytic work on the reclassification of governrcent transactions with a rriew to providing
data for the fornulati-on of ecotroriic and social potlcles is nearing
cornpletion. The economic and functional ck',ssific.:tj-on schemes
developed by the Secretarlat have }:een tested at regj-cnal budget
workshops held in Asia and. I.,atln A::rerica uncler joint arrangements
with the reglonal econonic c<-:mmj-ssiorrs o High priority will be
given to this type of work in Africa i,rhere the first rcgional
budget worlcshop is planned for 1951.
296. In Asia and the I'ar Eest, 1n responsc to government
requests, enphasis will shift however to other problens of budget
management, particularly to the app.tication of the tech.niques of
programae atrd performance budgetrng. A third. budgetary r,rorkshop
-
Loo
in that region scheduled for L96Or D.s tr,el-l as a further budget
workshop for South America, will place emphasis on this aspect
of budget nanagement.
297. Programne and perforniance buclgeting provid.cs a technique for the proper evaluation of government expenditure not
only in financial 'terms but in real terms as wel-1. ?roject
budgeting nay be consi-dered an aspect of this technlque when
applied to the planniqg and execution of major developnent projects. Work on project budgeting will be given high priority,
since it also has speclal. value in connectlon with neeting the
requirerirents of lnternational lending agencics that help to
finance developnent projects.
G. iITTIIAi'T RIG}ITS, Ii{CIUDING FRI]EDOI;I OF INFORMATION
298. Practica.Ily all the organlsatj-ons partlclpating in
the appraisals are contributirg to the achievement of human rights
as set out in the Unlversal- Declaration of Human Rights such as
the rights to education, and to participate freely j-n the cultural
l-ife of the comnunl'by I the right to an adequate stand.ard. of
living, whj-ch includes health, adeqr-rate food a"nd housing, and
other elements essential- to the wel]-being of the individuar;
the rights to soclal- security, tc equal pay for equal work, ai.rd
to freed.on of thought cncl association; ana otherJ. Almost
everything that 1s belng done tc pronote economic and soeial
development bri-ngs the onjoyment of basic human rights more fu11y
within the reach of groups and ind.i-viduals.
299. More specifically, the United. Nations, I.1.0. and
U.I{.E.S.C.O. are carrylng forward and rlre contemplating a nunber
of prograrilnxes explicitly label]-ed as programnes desi-gned to
further certaln huuran rights. These prograrnixes can be rlivided
groups accorcli-ng to the.riethods and approaches employed;
1lto_three
drafting
of lega1 lnstiunents (stand^ard setting); the c6n-lho
ductlng
of studles to clarify individual and" group rights and of
surveys on the appllcation of standards, and thus to focus the
attention of governments and public opirri-on on any vj-ol-atj-ons and
shortcomings; and the promoting of exchanges of experience in
the lmplementation of hun:rn rJ-*hts,
3OO, It is evident frcm the ap'pralsals that the past ernphaeis
on standard sctting will 'continue into the future. Among the
Iega1 instrunrents expected to be conpleted. at an early stige or
on which action is contemplated during the years immediately
ahead, are the two covenants on Human Rights; a convention on
Freed,om of Inforrnation; a draft Convention and Recommendation
o1 _t_he Age of Marri&ge r consent to lviarri&ge r and Registraticn
of Marriage;
and draft Declarations on the Rj.ght of Asyhur and
101
-
on Freedom of Inforroation. All these instru:ncnts are under
consi.d.err:,tion by the United Nations. U.Il.E.S.C'0. is consideri-ng an interncr.tional convention and recomnendation on d.iscriminati6n in education, a.nd a convention on the rights of perfoln?Is,
recorders and broadcasters, the latter in co-operation with the
I.l.O., which inltir-rtec1 wcik on this subject, and the Berne Union.
3OL, Closely related to the ,drafting of these con'rentions,
reconrrendations and declaratlons are sustained efforts to achieve
a universal appllcatlon of existing ccnventions. In the case
of the I,l.O.-this rneans primarily its Convention and Recommendaof associatiorir-on
tions on trade union rights and on freed.om
j-n
eraploynent and equal pay
forced labour and cn discri-min,,ticn'
for equal work.
becorne the basls
3OZ. Aniong major studies (which frequentlyUniteit
Nations has
of future recon,rnendations or conventj-ons ) , th.e
under way and expects to see concluded d.uring the peri-od under
discussi"on three studi-es of discriminaticn in the matter of
thc
religious rights and practlces, of political rights, and ofand.to
righT of evelyone to leave arry country, incl-ud'ing his o-wnr
refurn to his country; as we]l as a study of freed'om fron arbiset up
trary arrest, d.etention and exiLe. A speclal coia;;iission
status
the
of
stud'y
,
najor
il
engaged1s
/ssenbly
by tLe General
their
over
peoples
nations
and.
of
permanent
sovereignty
oi tfre
natural-wealth and resouiceb. viiith a vi-ew to advaneing freedon
of association the f.tr.0. is carrying out a najor fact-flndingsurvey of ccnditions relating to freedon of associatlon, lncluding
on-the-spot studles in d,ifferent countries.
1s primarily
3O3'. The 'exchange of experiences and infornationwhich
three
of
t}:rough-scminars,
developld by the United Nations
dealt
have
Past
senlnars
per year are planned for the future.
iritfr- such proLlems as the pos j-tion of wcraen in public l-ife r the
crininal 1aw and procedure, and
protection
-3udicia1 of hunar:. rights inagainst
iI1cga1 exercise.ancl abuse of
and other ren5dies
appraiidministrative authority. U;N.E. S. C .0. r accor"d'lng- !oofitsd'iscrimifield
the
i.n
;;t, p:-rn" sinilar sera'inars partieularly
nation and measures to eliminate racial and other prejudice.
U.N.E.S.C.0. r over the yearS
7O4, Both the United. N.rtions andpronoti-cn
of freedora of
have girret extensive attention to the
the
inforiation. The United Netions expects to coiiplete soon
of
which was
Ccnvention on Freed.om of Infornatiorr, the first draft
a
Declaration
prepared
in 1948, ar1{ has before it for early action
-on
irreedom of lnforrration introd.uced in 1959. These instruments
are airoed. at reducing obstacles to freed.r:m of inforrtation.
U.N.E.S.C.O. ts efforls focus on the d.eveiopment and inprovement
activitles
of facilities and techniques of conmunications. These
cannot
information
of
freedonr
tnat
realisation
from
the
stem
j.02
become a reality as long a"s large parts of 'the worl_d lack erdequate means of corrmunic;,.tlon and facilities for the exchange of
information and. opinions.l
3o5, ,An i-mportant new aspect of ilr.i.s progranr.e has been
the recluest addressed by the Ecc.rnomic and flocial
council to u.N.E.s.c.0. tc., rnake a worl-d survey of the p:.obleins
of provid.ing technical assistance for the devblopment of tne mea.ns
of mass comlunicati-cn in thc uriderdevelopcd countries. fhe surveJr
is intended to enerble the Councj_l tc evaluate the materia-rlr pxofessional and financial resources nceded to carry out specific
developr:rcnt progranme s.
Regional meetings of governmental and
indivj-dual experts will be hel-d d,uring L96o-1962 in south East
Asia, lat j-n Arirerica and Africa.
At the sane time LI.N.I. s. c.0.
will continue j-ts work to d.evelop tralning facilities for nass
coierr.unication personnel through centres already estelblishetl in
and latin Anerlca and it is hoped to pronote similar
lurope
facili-ties in Asia.
opened up by
H.
CULTURAL HER]TAGE A},ID iVruTU.lL-,, API,R,TCIATION
0F CIJITURiIL VALUES
106. The airas of U.N.E.S.C.0. are, anong othcr thin5s, to
assure I'the collservation and protec.bion of the worldts infieritance
of.books, works of art, and monunen'bs of history gnd sciencert, to
rrgive fresh impulse to tire spread of culture" ai-rd to assi-st
in
'rpreserving the..ind epend ence, integrity aird fruitfu] d iver,sity
of the culturcsrrz of member States. U.ld.E.S.C.O. therefore uncier
its constitutj-on has a special responsibil-ity fc,r the preservs.tion
and advancement in riepth and irr breadth of n6n-niateriai verlues,
the impor';ance of whi-ch was stressed eariler as one of the esser.,.tial- needs of a worlc1 in a state of raplrl development anci change.
Th+P i". ? long-tern task r'rliich recf iires patience anti. persistenJe
ratlr.er than new proliremmes.
-l
seventy per cent. of all the books '::ubh.shed an.nually are
prod.uced. in Er.Lrope, lI.S.S.R. and. ldorth" America. The saine countries publish tvro-t1:.irc1s of the nelrspapers of the world and
possess BO per cent, of the exi-sting radro reeeivers. a hunclred
countries, 90 of thcn in /rsia and Africa and with a conrbined
population of 11500 ririllions, have l-css.bhan ten copies of daily
newspapcrs and lcss than five rad.i,r reccivers for each l-OO inhriLi-
tants.
2
Constitutj-cn of the United Naticns Xducational, Scientific
and Cultura] Organization, Artlcle l_.
_ ta1
U.N.E.S. C.0. , in. itS a.ppralSal, errphasises thi-s need
progr.rn::ies in tfuj s fie ld
to r-raintaj-n and develop j.'rs cxlsting
Vlith a vielr to conrather than to f orr:tulate new proSri,llji:]es.U'N'E:S'C'0'
proposcs
servi-ng the cultural heritag,e of nr'"nl<}ld,
of cultural r:cnunents
io int[nsity it" worli in the preservationarrd
librarie s tLrrough-arcrrj.ves
nuseqms,
of
and the aevbtopient
g9v9TPlents. The
through
alct
technical
technical assis-i;ance and j-n
rnitiation of
thc
1s
r3.nge
project
tiris
nost a.mbitiouJ t.o,
ou'bsj-de the
be
securerl
fundrs'i;o
lar.,ge
neasures - liXery t-o r6qui-re
Nubiel,
of
the
U;N.E.S.C.O. budge t - td saifegrraid
'romrnents
threatened with Jub:rersion as a result of the +swelh.
'LIi8h Dan.
arn
accel-erated
at
cases
It also proposes to continue, il Soiie(wi.th
col-ourcd z'eproductions )
uit'*ib,r*"
publication
of
its
rate,
intcnds to
and of translaticns of represen'ca,tive worlcs. Itj-caiIy
ancl- on- a
develop these and related. actlvitics nore nethod
bentr +ltqr a-l-ia by
wider scale ,rrA--to-gi"u theri a nore popular
fo these endst
a wid.er use of the mass Coqr,iffiiCation medj-a.
U.N.E.S.C.O. antic:-pates a 180 per cer:.t. increase in i-bs budgctary
p"o"i":-o"" for these purpose S wtrictr, proporticnately.speaking,
iu one of the largest inbreascs the organisc"tion envisages'
S prosranLriies the pror:rotion of
3O8. One of u.l{.8. S. C.0. t and.
u/L:otern cultures - vri-ll con'mutual appreciation of Eastern
3O7
.
thg period under revlew'
tinue as . *ujo, project throughout
for the
undeiterkenr.also,
be
f,c
is
progrargrc
A;;;, iong-terrx
p=o*uiior, ,it ;-;";;a;:: und,erstanding of the cul-tural valucs of
Equatorial Africa.
-104_
PART
III -
MAJOR SHI.B'T'S
IN
EMPHASIS
1O9. In the precedlng review, it is possible to diseern
certain roajor shifts in emphasis in the economic, social and hurnan
rights work of the United Natlons organisations. It is neeessary
to brilg these intc focus in order to 6ain an understandirtg of
the direction in which the irrter-governnental organisations are
evolving.
|tO. Before that is d,one, however, it should be observed
that the programnes outlined ln Part II cannot be expected topJace,
give a fulty-rel-iable pi-cture of the future. In the first
future progranames are d.eternined by the governing bodies of the
autonoroous organisations concerned, and the actions of the
In the I.Ir:0. t progralime
governing bodies cannot be foretold.
developnrent involves a continuous process of negotiation anong
representatives of governments, employers and workers. fn the
second place, it appears that a large volume of activity in the
econonic and. social field will continue to be carrled out through
technical assis'bance and the Special l\rnd. These operations are
undertaken uDon specific requests by governments or Sroups of
governments.' The nature of the requests cannot be pred.icted with
certaj-nty fron yeaT to year; in some cascs - but not in all there 1s a close relatj.onship with regular programmes.
3AL. Partly as a result of this sj-tuation, the separate more
appraisal reports have nct unnaturally tended to concentrate
on headquarters activities, whlch are likely to have a more
systematic and therefore predictable development, than upon field
operations that arlse fron myriad. government requests rel-ated to
the development probl-ems of the individual countries. Consequently, there ten,ls to be an over-emph.asis in Some of the appraisal reports upon studies, interna.ti.onal .meetings and. other
activlties characterlstj-c of headquarters work. It is hoped.
that the consideratiorr of over-al"] trends arrd shifts in emphasis
will-r at least to sone extent, serve to correct such unconscious
distorti-on.
A.
FROM PROTECTIO}T TO DEVEIOPIUDNT
3L2, The nost clearly markerd trend in the work of the United
Nations organisations in the economic, social artd human rights
fields is the shift in ernphasis to developrnent. As pointed out
in the Introductlon, there was a prj-raary concern in the league
of Nations and in the early I.1.0. with action of a defensive
or protectj-ve na.ture - the protectj-on of countrj.es against dipreventi-on of
seases that might cross internatlonal frontiers
j-nternational traffic i-n wornen and chlldren and.Iin illicit drugs I
protection of l^rorkers agalnst unfair and j-nhumane conditions of
-
105
inhabitants of dependent
labourl protection of the indigenous
j.n
econ<.,mlc and social- field
the
action
Such
early
teryitories.
recogni-sed the
hardly
that
of
thought
a
climate
in
was taken
development.
of
econoniic
concept
711. Towards the middLe of this century, however, thecoid.ea of development as a maior objective of internatj-onal
operation took root in the internitional scene (asr for exeraPl",
in the resolutions of the Hot Springs Conference of L943) t and" j-n
the major goal of the United Natlons and. speei-a1ised. agencies
the ec5nourlc and soeial- field caule to be that of pronoting the
development of the lcss developed countries. This purpose was
present in the Chartcr of the United Nations and the constitutions
of most of the specialised. agencies, but it has und.erSone a very
great expansion in practi-ce,
B.
STANDARDS AND O?ERATIONS
3L4. The shift in
ernphasis
frorr protection to
development
brought with it a para1.1el shift fr,-rrn ttre setting _of standard.s
to operational activi-ties. Prior to the United Nati-ons, the was
economic and soclal work of inter-governmental organisations
to a large extent of a lega1 character, :Lnvolving the establlshment of fnternational standards, regulations and conventions which
defined. obligations of member States in their economic and social
relations with other Statesr or in their treatment of specified
groups (workers, wonen, chiid.rerr, prisonersr_indigenous peoples,
pro6tc.) 11 territiiries under their conbrol. The lnterest J-n proto
continued.
have
methods
these
and.
maintained
been
tection has
cirpurposes
in
the
and
for
the
proved.
vaLuable
be used. and have
lega1
New
conceived'.
r^Iere
originally
they
cumstances for whl-ch
instnrments have been constantly established on matters ranging
from the transitort of d.angerous ma"'berials to the protection of
intell-ectual ploperty. The introduction of sone of the new technologies, for exanple, makes it imperative to establish new interv!
nati5nal'standards-foi the protection of life and property. The
spread. of the peaceful applleation,s of atcmic energy is having
t[is effect, aid an impo]tant part of the work of the I.A,E,A.
in its initial years witt necessaril.y take the form of devising
regulations, codes and controls, and of stimul-ating research on
prSb1ems of rad.iation protectlon. (r.s well as developing standardised measurements for internationr:-L comp.rrability of research
results ).
. By and large, however, l^rith the shift of emphasis to
development ihere has-bcen a strong tend.cncy for the- international
organ.iSations to apply nore operational methods, such as direct
aslistance to countiies through field surveys; advisory services
of experts; fellowships, seminars and. tralning institutes;
1:r5
-106
?
pilot projccts; and certaj-n forns of naterial
asslstance. A vcrX, Ia"rge portlon of the regular bud.gcts of some
of the organisations and most of the proceeds of the various
voluntary funds at their disposal are being used. for these purdemonstration and
poses.
to conclude that the setting of
international- standard.s in connection with the rea]lsation of
economic and. soci-al values is necessari-Iy in contra,d.i-ctj-on to an
operational erpproach. Stand.ard.s are inadequate as a neans of
proraoting econonic and. social developmcnt if governments concentrate their efforts on the ad.c;pti-on of l-aws and. the; prornulgation
of rights concerned., for exanple, with uni'rersa] education or
ninimum housing requ5-renents that are currently iruposslble to
impl.ement, and then consider that their responsibil.itics are ended.
By contrast however, standards, in the forri of j-ntcrnational- conventions or recoinmendations or otherwi-se, can becoirre powerful
tools of econonlc and social development, particularly if in
appropriate cascs they are concej-vcd and. couched. j-n terns of goals
to be achieved through development, rather th€Ln &s legal prescripticns for iumediate appJ-ication, end if they e.Te entered upQn with
a sense of conilitnent. By defining and clarifying objectives
which, given time, are attainable, they facilitate finalachierre116. It
woul-d be erroneous
nent.
7l-7, In this context, lt nay be noted that the I.f,.O. has
continued to enphasise standard.s and conventions somewhat more
than other J-nter-55overrrriental organisations, It is significant
that the nunber of ratifi-catlons of I.1,0. Conventions has risen
sharply in recent years, particularly &noflg l-ess d.eveloped eountries and new States. ii,t the sane ti-me, the I.l.Oi has greatly'
enlarged its operati-onal- activities in such r:ra.tters as nanpower
i::aining, workers I education, procluctlvity, labcr-rr-management
relations, and others. It is reaching for.arr i-ntegration of
standards and of operations to assist in their iiapleraentation.
C.
DECENTRAIISATION.
518" The accentuation of cpe.rations has menat a shift of
enphasis fron work at headquarters to activities in the fj-elcl,
The re gional economic corrmfssions, in particul-ar those for Asia
and the Far Dast, T,atin Anerica, a.nd. Africa, are stead.ily galning
in importance as fceal centres f<.rr the di-scr.rssion and. the promotion
of econoiiiic development, lncluding its social aspects. It is here
rather than j.n the Council or in the General Assenbly that experts,
planners and adninlstrators meet, who have primary resrronsibilities
for the economic development of 'their res-pective countries in the
several regions. In the sane vein, several specialised agencles
laid increaslng stress on rcgional offices or are planning
have
- IU/ -
regional or sub-rcglonal offices in the areas of greatest need.
rn F.A.O., for exai::ple, field activities at rcglonal offlces have
been growing faster than headquarters activities, ancl this tendency is expected to contj-nue. I'ror.r the start the I{.II.0. has,
under its constitution, assigned. far-reaching responsibil-lties to
its RegionaL Connittees composed of govcrnmental- represcntatives;
these_regional bodies have played an j-ncreasingfylaige role in the
formulation and. operation of W.H.0. progrannes.
7L9. :idvice and assistance to ind.ividual. governnents, nor{
the chief node of operation j-n econonic and. soci-al affairs, is
by its nature fiel-d-oriented. This is fu1ly evident 1n the case
of operatj-onal prograrfites as caruied on unclcr the Expanded Prograril:re of Technica] Assistance, the Special Fund, and U.N.I.0.E.F,
with their large number of resid,ent representatives, country
chiefs of mission, experts, technicians ancl fierd workers, many
of whon can be found in renote quarters of the und.erd,eveloped.
parts of the world.
new
D.
SHI}-'TS
II{
TRAINING
32O, Internerti-onal assi-stance in econonic and socla]- developprinarily concerns two needs of the less cleveloped. countrj-es:
first, the need for lncreased knowledge of their problems and
potentialities and the technical skil-I to deal with then conpetently; and, second, the need for f,inanciaL assistance. trittle
ca.n be said in this report on the second j-ssue as an j-nter-governnental problem, since the najor financial institutions are not
covered by the appraisal. The linited fj-neincial resources
available to the participating organisations, especially through
E.P.T.A. and the Speeial f'und, are largely devoted to neeting
the first need,l i.e.2 the transfer and adaptatiorr of knowledge
and technical skills.
Tiris means, above all, training at every
level- and such baslc education as is a prerequisite to vocational
or professional training.
32l-. One of the earl-iest nethods of provlding training was
the award of fellowships, used. rnostly in the nore highly developed
countries. Under the E.P.T.A. alone, it wil-I be relnembered, rrore
than l-4,000 fellowshj-ps were granted between 1950 and 1958. When
other sources are included, the actual- number of fellor,rships provid.cd. by th.e organlsations is substantially higher, and has reached
nore than 101000 ln the case of the W.H.O. alone . In recerrt years,
however, there has bcen a slow but stea.dy decllne in fellowships
for studies abroad under the Expand.ed" Progranme. Thisreflects
a shift i-n emphasis to training within thc less developed. countries themselves, by nieans of Iocal courses and the creation of
technical- centres and institutions which will- pernit tralning on
a larger scale and at substantially reduced pcr ca:.pita cost. One
of the najor objectives of the Speci-a1 Fund, is to assist in the
estabhs hnent of such instituti;ns.
IJ. N. f . C .E.I'. asslsiance for
r,Ient
-108training aetirrities j-s almost entir'ely given for the strengthcning
and expanslon of traj-nlng rrithin the assisted countries and includes the granting of stipends for trainees. Thls gencral trend
not only reduces the cost of training per individual, but al.so
pernits training activities to be tallore<l riore closely to the
iiccds of the indlvidual countries or regions. It r.iay also give
a nced,ed boost tr: the trainlng r.rf auxiliary personnel ln. eountrles r,.rhere there are severe l-inits on the nurnber of people who
can be given advanced. training leading to ful1 profess.i-onal- status.
It does nct, however, apply to the sane extent to the training
of certain categorio.s of personnel-, particula"rly the higher l-eveJ.
spccialists and the specialists i-n new technologles J-ike atonic
cnergy, where facilitics for ad.equarte tra"ining are not availabJ.e
in nany countries and can onJ-y greidually be uade so. Thus,
I,A.E.A. plans to cxpancl substantia.lly its fellowshippogranne.
322. The provision of experts to assist 1n the planning and
cxecuti-on of developnerit prograrJiles also helps to neet the need
for training, ln the sense of a transfer and adaptation of knowledge and. skills 1 evetr where their activitics ere not d.j-rectly
relatecl to educa'bion anc] training prograr.mes. In this connectj-on
it is interesting to note the growing e:-rploynent of experts recrui-ted from anon€.; nationaLs of countries lihich thenisel-ves are
i-n a rapid stage of developnent and are 1n turn roceivi-ng expert
erssistance fron .oore highly developed countries.
E.
INSTIIUTIONAI
DEVELOPMENT AND ADIVJINIS'l'R..TT]ON
727. Closely related to shifts in training is another
gcneral trend which can be detectcd frcn the appra.i-sals, particularly those cf the United Nations, F.A.0. and 'r',I.H.O. This is
a. growi-ng enphasi-s upon
developing necessary
insbltuticns
(und"er-
stood. in both a governnental and a non-governnental sense ) and
upon irrproving adrlinistratlon, including the provision of trained
adninlstrative ancl executive personnel. Too often aclvice on how
to unclertake a partlcular devel-opn:ent project has nct achieved
the desired. effect bccause the country has lackerl the capacity
for carrying out the project even when knowing how it should be
done, One aspect of thls problem i-s, of course, again financial
eincl capital ca,pacity. But arrother is adr:.inj-strailve and institutional capacity, rn'itich J-s part of thc necessary lnfra-structure
of development.
124. The Uriited Nations expects to expand. lts,work in
public adninistraticn with special enphasi-s cn e.xploratory r:issions
and consul-tative and. advlsory servj-ces in tho building up of
nertional- adnini-strative servi-ces and iheir personnel. Srupplencntary to this prograr.mie is thc schemc for the internatlonalrecruitnent or cperationa.l, cxecuiive and ad.ninistrative personnel
(O.P.E.X. )r which is stil-l in thc expcrj-nental s-bage. TLe United
-109Nations appraisal further in<licates that technical asslstance i-n
of
the socia.l fieId., whieh usecl to be concerned with a variety
the
to
attention
glves-najor
now
friifriy speci-a1is6a projects,
nr[uni*,1-tion and aailinistraiion of socia] proglarures, and to the
refation of the services to broad. prograllnes of d'evelopnent.
The F.A.O. foregtaes that najOr areas of expansion
125.
proqrarine
wlll- be in soci-al and econonic institutions
in its
(i,*a t'enuie systerrs, agricultural credit institutions arrd coof
operativcs, etl.), g6veinnent services, and. the organisation
work.
extcnsion
r-esea.rch and educatlon, lncluding agricultrral
Thc \rt.H.0. ls pronoting public trealtfr services on the naticnal,
provi-ncial and. Iocal fcvefs. The I.1.0' will- i-ncrcase its
btforts to build up labour arlninistration and the institutj-onal
u""*rrguoents for libcur ijlanager:ent co-opel'ation. U.N.E.S.C. 0.
iu-io6foing for a substantial-increase in its acti-vities rlesignedinstltutions
to furthei tfr" establishr:ent of teacher training
for
the planned'
neeessiary
nachinery
ad.nj-nistrative
of
the
and
aevefopr:rent of fori.ral educatj-on and trairling, ?nd ?lso intends to
set up a clearing house dealing wlth governnent pcllicies and lts
continue
institutions con6crni-ng science. The 1'il.!1.0. will neteorological,
nati-onal
of
d.evclopnent
fhe
in
role
"o-orairrating
whlch constitutes the naln part of 1ts activj-ties-r.and
"ur.ri"uu,
be building up er network of neteorologic-al.stations, wh1le
wilL
the I.r\.8.A. is"gii/ing assistan.ce to the establislu:ent of
national atonj-c energy connisslons or sinilar bodies.
326. In a wcrd,, the trend toward.s building uP the caPacitY
institutions,
for developnent the necessary infra-structureofofthe
eeononic
irost
to
ad.ninistration and Personnel - extend.s
are
organisati-ons
and social fl-elds in which the internationaloperating;
F.
TOWARDS
A
BI'IANCED ECONOMIC IJ'[D SOCI/i.L
DEVEIOPMENT
with balanced
1ZI, Mention of the growing preoccupation
on
scveral occasions.
econor:ic and social develofnent has becn r:ade
there is
Frcll the experience of govcrnnents it is apparent that
of
separate
n'ee<l nct only-for d.cvelopnent in a nunber
pattern
of
""g""t and social fiefds, but albo for a balanccd
""
e"or,.oilic
inor
developnent. Othcrwise there may vrell-be inefficiency
trurianity in the d.evelopuent prcce-ss. There is a tend.ency for
p"og"esb in sone fieldB to be slower or faster than in others,
L"ciuse of the dlfficulties or the ease r:f technologlcal transfer
and loclernisation, or sinply because of ,the relativc strength and'
influencc of a paiticular ninister or offici-a}.
allocation rlust
7ZB. With resourccs so scarce, a judicious
both of
teri-is
in
i:axinun-results
to
achieve
be nade in orcler
d'ces not
This
of
livlng.
levels
growth
of
higher
and
econonic
ccntrary,
on
thc
once;
at
bc
attenpted.
nean that everything should
-
110
aetions and concentrated efforts at "break-through"
and social stagnatlon nay even
in the vj-cious circle of econonj-c
a conception and' an
be desirable' 'utrhat 1s need'ed., hcwever, isguiding
principlet,so
alrareness of the {ot"f problen as a basicnot be seen
sole1y. from
will
field
that action in--any particular p"otesslonal
j-nterests
in that
the point of ,ieto" oi pr"tisa"
welf&re'
and
growth
of over-all
field. but t"o,*-ifre-point of vi-ewprincip':f
and'
rhe precise "ppii""iii,;-of this
it-l*:-:?1t"nalunderstand'ing
rflore
also the international levels, rbquireiand social d'evelopmentof t4?"
-bhe interacti"g--"h""acter of 6condnlc
is now avaifa[ie, tut the prob]en is recognised and certain gulcle
Iines are being sct uP.
rrspearheadrr
S2g,Thereisagrowlngrecognitionalsothattheu}til:ate
social objective: higher
objective of econonic devefcrfinent Is of
I
the connunity and the
levels of living and tfre weii-being
There are stil1 wide d'ivergencj-es
ind"ivlcluut" *rro'"o"pouu it.
programmes are best designed to
of views as to which econonic
prograr']nes can best confurther sociai ptog;""" ana-wfrich socialare
being-asked' about
Questlo.ns
tribute to o"o.6iriE-growth.
Nc ready-anshrers,have been found' but the
alleged inbarances'
-As-insi-ghts
aird und'erstanding ad'vance, there are
search 1s ollo
year" lo co,.le I i-rr prograrurie
iit"fy to be changes, dtring the
,
effective met]rod's of
priorities "rrA--irr"tfr6 cnoicE of tfte nost
ach.ieving new goals, incluJing methods of planning and co-ord'inat-
ing aid.
econonic and social d'evelopnent
33O. The theme of balancedNations
is the
?"t1 of
runs thrcugh """V-ot ift" Ut:-ted 1951. programlnes,
- The extension
the
for
subject of a;A;ri scheduled. the regi-onal eccnoroic conmlssions
terr,rs of reference of three of
developnent is anoto stuciies of-ine sociaf asllects of econonlc
is re-orienting
F.A.0.
The
ther indicatlon of the "oru'interest.
the prespective
its whole approach to agricuitural developraen!-fron
soclal
of
applled
field
in the
of balanced growth. u.N.E.S.C.O.research
on
on
discuss'l
and
to stirnulate
sciences is
The W.I"I.0. appralsal
developreent.
""uLi"g
sociai
and
balanced. economj-c
j-nd.icates great interest in the int6r-relations between econo''ri'c
the need not o11y for
factors anrl health questicns, stressing
hca1th serviccs but also
proper balance ancl integrati6n within ttrc
j-n
a general. socio-eccnomlc
of ih""u services
for the integration
'r.-rr.o.
to the iuteris devoting-nuc! attentiolr
progralxl]e.
relatj-onships bettreen ccononic d.evclopnent and the living ancl
working cond,itions of labour.
G.
NEW DEPIiP.TURNS IN STATIIjTICS, SURVEYS
AND RESEARCI]
that the absence of basic
711. rt is generally recognised
deilographic, econoi:ric and social- d'ata
statlstics ancl of-elenc,ntlry
in many parts oi-tfr. world,"creatSs scrious difficul-tj-cs in
the
-111fornulation of devel-opnent plans and prograr.rucs and that und'er
these conditlons exte-rnal aisistance cannot be rationalJ-y directed'
is lre}l characterised
to achieve raaxiraur:i rcsults. The situa.tiontrthe
i-nlportance of
by the statenent in I.I.0.rs appraisal that
unclerdeveloped
the
slttlng op or improving statistical servlces in
countries can nai"Afy Ue overenphasised., for econoi-iic forecasting
ancl hence developmeirt planning depend to a great-eTtent on.the
avail-abl}ity of ieliable and accuratc statistical infornation".r
1s thus re572. Th.e shift to developnent and operations
and
of
statlstics
collection
the
on
growing
enphasls
fl-ected in a
for
essential
research'r
and
i[" preparation of Eurv-eys
"action
the tornulatj-on and j-nplenentation of clevel-opment prograllures
Thc tend.ency to a closer tle between surveys and acticn becones
particularLy evj-d.ent in the stepped-up asslstance to governnents
acknowledged
ior surveys" for developnent planning. It is an group
of eTPerts
or
clanger th;t in technicaf assistance an expert
sinilar
various
with
nay nake a report which is then filed away
to avoid'
is
effort
relorts colle-cted over the years. Thg curuent
plans
operations.
and
this danger by tying the surveys to actual
increase thelr ei:phasis
753. A nupbcr of agencies propose toThe
United Nations and
on rescurces and requireients suiveys.
F..tt.O. indicate an fncreased reliance on the technique of projcctions of econonic and der:ographic ttend.s as a rleans of aid'ing_
5cononic ,levelopnent. In the Unitea Nations furthernolg, social
statisties wil-l be built up as a neans of facilitating the fornulation of soeial- policles and prograrirles.
economj-c and
134. In keeping withj-sthe interest in balanced
d'ata and
with
also an evident ccncern
social-developnent t[ere
studies beariirg on the inter-relationship between different
econor:ic factois in the general developnent and the relations
between econonlc and social development. This concern is clearly
sct forth in the F.A.O. appraisal., which states that the elaborasurvey
tion of policies is plainly irapossible wlthout a generalindividual
each
of the econonic and. social- position, not nerely ingeographically
country but in the rcgion ol which the country is
.r
o
a nember.
developnents, br:th
335. Finally, the accent on institutional
growi-ng
efforts not
1n
expression
finds
national and. regibnal,
but also to
services
statistical
only to establiih or inprove
centres
research
or
regional
assist in the creation of nationaland instituti-ons.
' ,/lzqr, para. 148.
H.
112
EivIIHASIS 0N PIANNING 1,1,r-D PR0GRAiW'{ING:
lii/TTIONAI AND REGIONAI
1)6, The references that are constantly nade to planning,
prograrflnlng and lntegration in the appraisals of the international
organisations show that emphasis has been shifting fr<;m specific
projects, frequently conceived. and executed nore or less in
isolar.tlon, to over-all plans and progrannes. Stress isl:iicl o]1
a more comprehensive ap'prcachr so far as activity at both the
national and the regional levels is concerncd.
137 . This trend toward.s greatcr planning, prograifi111ng and.
integration is eviclent, in varyi-ng clegrees, throughout the rnajor
regj-ons of the worl-d. In Europe, cfforts tolrards reglonal
econornic and. social integration have been pursued largely outsid.e the United. Ilations, although such crganisatlons as the I.l.O.
and such bodles as the E.C.E. have contributed to regional and
sub-reglonal co-operation in certain technlcal fields. Moves
towards connon planning and greater ccononic integration 1n Asia
and in latin Anerlca have been spearheaded by united Na,tions
bodj-es, for exa-r:ple, B.C.A.tr'.E. in Asia and. the Far East and
E. c.f,'A. in lratin Anerica. F.A.0. has been giving increasing
weight to regional planning fron the point of vi-ew of agricultural
d
evelopnent.
338. In the IJ.C.A.!'.E. region, a subsidiary bod.y of the
Connission - the iiorking Party on Economi-c Developrnent and Pl-anning - has for years deal-t with problcns of progranr,iing techni-ques
an{ hag adoptecl a sector by sector a,pproach. Going beyond this,
E.C.A.F.E. hels d,ecided on the establ.ishnaent of a Confercnce of
Asian Econonlc Pl-anners, with plenary sessicns every two or three
years, and to be attended by h.igh oificers dealing with econonic
developnent and. planning. This Conference is to review the work
and progress in the fleld of planning as a whore. 0n a subregional basis, the Co,.rniittee f or Co-orcLination of Investigations
on the lower Mekong Basin, coirrpcsed, of the four countrles on the
lower Mekong Rj-ver, is pushing forward with the pre-investiaent
surveys necessary for the d.eveloprucnt of the rj-ver basin, with
the expectation of the establishment of a coraprehensivc developr.lent prograiaroe. A wide neasure of sir:rilar co-operation is involved in the developr:rent through E.C.r^i.r'.E. of the Asian Highway.
In }atin America, steady progress is being made with the :iJ.C;l.A:sponsored Central American Integration Programrie, in which specialised agencies, partlcularly F.A.o., are co-operating. bhe
top prlority of that Conmisslon of the Council- cluring t[e next
years is asslstance in the creation of a regional Latin American
i:a.rket and a paynent systen; a treaty estabj_ishing a free trade
area has just recently been signed. The E.c.A. :-n its first
sessi-on emphasi-sed concerted. actlcn as an essential factor in
-
LL1
econonic and social development and. nad.e concrete proposals to
facilitate such concerted. action and further economic co-operaticn
ariong the countries anrl terri.tories of varlous sub-reglor."'
now an established,
37g. National dcvelopnent plans areIess
developed regions throughout
countries
patteinin nany
!h"
'of tfre worlcl
are a roatter of
and
execution
fornulation
aira their
planning
national
Special
countries.
those
profound ccncern to
Multithen.
many_of
up
in
set
been
6r co-ordlnating boclies have
the
on
offered
is
a.ssis,tance
l-ateral and bilateral technical
have been urged to conbasis of country requcsts and. coun'i;ries
'!
si-d"er their ovei-atl needs and. the nter-relationships of the
various sectors of their econony in fornulating their requests.
Within particular sectors or fields of activitl' 1ir"ru is also
pIannilg. This is
a growiir.g preoccupatlon v,rith questj-oris of
ts
inflicatedr-for exinple, by U.N.E,S.C.0. e:rphasi-s on educational
planning.' i/tr.H.0. fras'woiked closely with governnents in the
p1als, acting particularly through
i""pu.rufion of natlonal hoalth
provj-de an opportunity that
trencls
Those
offices.
its'regicnal
action within the
concerted
for
d.eveloped
further
fo
be
nceds
fanily.
Nations
Unitcd
indicate that
340. Several of the separate a.ppraisals
to governments
a',ssistance
ycars
international
few
during the next
ancl,
up
bc
stepped.
wi-II
progrlrnleing
in deielopnent
1n thc view
as
conflissions
regicnal
its
and-some.cf
of the Unitea miti-i,ns
forrulathe
in
extended
be
increasj-ngly
willwel1 as the F.A.O.7
go furthest
tion of over-alI countr;r p1ans. E.C.I.A. plans towith
U.N.T.A'0.
co-operatj-on
in
orlairisatj-,rnr.
by providing for the
be
(advisory
at the
groups)
t?
teans
.ira-*itfr F.l1.0., of expert
the
establishnent
in
help
render
to
d.isposa-!- of gov6rnnent-s and
estinating
of ilanning igencies; in methcds cf planning.attq public
lnvestof
inv*estnent-re[uirenentsl in the estab]ishn;nt
prodevelopnent
of
nent prioritic-s; and in the inplenentation
grarrnes
)
74:-. ivluch of the projected p-l-anning and. proSrailming is still
j-n an experinental and rlct[cdological s'bage: As noted eibove,
the Unit6d Nations and F.A,O. have initiated. a nunber of studies
of techniques in prograr:ning and projection, ancl F.A.O. is en-
It
visaging d speciai pinticatlon on-agiicultural prograr-'ming.
grcwlng
reflect the
is hdped that these and rel-ate d. effor-us, which
of
adoption ur
au'upUrurr
gradual
tle
Ine
further
luI.trner
prograllf,jling,
progl.allf,jlingr
will
Wil-I
Sraouar
with
with
corrce-rn
COnCeI'n
and
;rutually consi.st5nt aind'and xreans in relatj-on to econoriic
social d.evelopriient .
I.
EI{ERGING CONCDRN !'IITH II\1'IERNATI0I{AL ECONOMIC
AND SOCIAL, POIICIES
speaks
Nations appraisaltrthe
742. The introd.uction to the United.
and
policyrr
cconora-ic
on international
of "the ,u,
"ophasis
for international action in the lnterest of a
growing denand.
-r14It states that "the thaw 1n
be-bter integrated worl-cl econor-ly".
the colcl lrarrr night resultitn greater willingness to cleveJ.op
j-irtercourse between different parts of the world'r. It refers to
'rthe ncw hopcs for disarnanent and the need to ncet the problens
whj-ch wiJl cone with it in the best interest of the worl-d colrr:unityrr.l At the sarie tinc, the Unitecl Nations appraisal, ancl
less explicitly the appraisals of scr-le of the other or6anisati-ons,
point up certai-n issues (such as the persistence of cyclical
econoi:ric fl-uctuati-cns, the problen of prinary conmodlties in
j-ni;ernational tradc, inflationary trends and difficul-tics 1n
paJrr:ents ) ttrat call- for the fornulaticn of broad international
poIic5-es ancl action. The strong trcnd towarcl national planning
ancl development and thc noves toward. regional integration nlght
becone <lisnrptive el-ements j-n wider international economi-c relations unless concei-ved and executed. within a broad lnternational
setti-ng" It vroulcl appcar that the international harnonisation
of national and reglona1. poJjcies and the forreula,tion of j-nternati-ona1 econonj.c and social policies have becone both nore urgent
and raore d es lrable ,
343. As a matter of record, progress in the foi:lulation
of lnterrrati-r,nal cconomj-c po11cj-es through the United. Nations has
There is relar.tivcly J-ittle forward-loolcing
been rather linited.
policy formation to meet ernerging problcms. 0n nost issues
there has, at best, been sof,Ie accorimod.a-i;ion of points of views
and of national. policies. A greai;er measure of harnonisatlon of
pollcies and frintegration" has becn achieved in such fields as
trade or monetary probler:is, but thcse achi-c'veuents were obtainecl
in large part through instrunental-i-ties with varying degrees of
relationship to the United Nations, such as G.A.T.T. in the fiel-d
of trad.e and various regional narket areas, sone of which are
entirely outside the Unlted Nations system. The International
Monetary Fund, nore directly rcl-a'oed to the United Naticns, has
provided an effectlve iaechanisn for reaching agreenenbs in the
nonetary field.
The regional econonic ccnnissions are devoting
rnore efforts to both areas. However, substantial parts of the
world are not parties to these agreeirents. As far as there has
been substantj-aI agreenent fui the Unibed Nations ancl its related
organj-sations participating in the appralsals, it has been agreenent largely on specialised. action prograrules and on certain types
of assistance to be rend.ered to inciividual countrles in the
dcvclopnent of sone sectors of their econor:ic and social structure.
fn other words, there has been agreer,rent on bechnical progranires
rather than on conlilon policies. Scne of these technical prograi$1es have taken the forn of worlcl-wide canpaigns such as the
iealaria eradication programne of the I,1.H.0. In ap;riculturalmatters concerning F.A.0., there has been sone approach to corf,non
policies on subjects such as surplus disposal, agricultural price
supports, and pollcj-es on individ.ual coru:oditi-es, but niuch renains
to be d.one.
L nfiz6o/Rev J-, paras 3-4-
-115744, There are signs that'bhcre nay be a change in this
sj-tuation. The Unitecl Natl,:ns appralsal expresses the hope that
the inportant ingredient of consultations and negotiatlons aini-ng
at i-nproved wor'ld econoriiic rel-artions will be adcled to the work
of the United. Natl'rns and parti-cularly of the Economic end Soci-a1
Council. The proposed. reeetings on tbe nj-nisterial 1evel to be
helcl at the tliirtieth sesslcn of the Counci]. in the sururer of
If successful, this could
1960 may be a step in that direction.
unclou.btcdly enhance the inportance of the econonic and sooial
e.if orts of- the United Nations and have a signi-ficant bearing on
future developnents. In the i:eanwhi-Ie, the growing docunentation
produced on world econonic ancl social- conditicns and. trcnds is
laying the founctations for organiseci atter:pts at such consultations ancl negotiatic,ns.
145. The suecess or failure of these effc,rts depenc-Ls so
polltical- jud-gncnts ancl clevelopnent as to be beyond the
on
r:uch
scope of thls report.
-
PART
TV
-
116
INCREASING THE EFFECTIVENESS OF I}iITERNATIONAL
ACTION
A.
REIATTON OF PROGRAI{MES TO NXEDS
346. A reader of the seven appraisa-l- documents mugt be
struck by the fact that little that concerns man, at any rate
in his economic and social aspects, is fore-ign to them. EVen
th.e condensations of the present report make it abundantly
clear that for almost every major need, for every acute problem,
there are some activi'bies,'The
some prograrunes, d.esigned to meet
thern, &t least in part.
fact that most of the organisations participating in the appraisals have been functioning for
L5 years or less makes this all the more impressive. The
financlal resources of these organisations liave been severely
Iimiied and, in spite of recent i-ncrease$, contlnue to be
strikingly small. Ttre total assessecl budget of the United
Natj-ons in 1959 devo-bed to economj-c and social activitles and
programmes lras less than half the cost of a major world fair.
l'he combi-ned annual assessed budgets for economic and soci el
purDoscs of the sev'en orgenisations here d.iscussed contlnure to
bc. e fraction of the cost of one modern nucl.ear-powered subrnarine or aircra:ft ceruier. These are shop-worn comparisons
bt-rt -bhey are telling.
Assessed budgets and vohr-ntary fund.s,
strch as U.N.f .C.X.F. r E.P.T.A., and. -bhe Special Fund, takcn
together are but s smal-J. percen'bage of the lnterirational ai-d
made evailable on a bilatcral basis outside the linited ida-bions
syst
eiir.
347. Considering the recent orlgln of the participating
organisatlons and their lim:-ted resources, their achievements
have been substantial. fhe evidence i-s extensive and
incontestable, even thougir the appraisnls, oriented &s they
are to the future, do not generalJ-y attempt anlr systemai;i-c
eveluation of past at'cainments. Great headway has been made
in fact-findi.ng and thc es-'cablishment of interne'bionali-y
cornparable statistics ancL other data. Mo.i:e thnn a start has
been nacle j-n ascertaining needs and d"efining problems wh.lch
call for action, privabe eno public, nati-onal and inter:national"
Objectives h:zve been formurated and stanclD,rd,s set. Above all,
thrcugh technicrl assistence a world-vrj-de transfer and interchangc of knowled-gc :.ncl tcchnology has been organised,, which
lies at thc very basis of economic andr soclal developmc.nt.
As e rcsult of all this, intcrnaij-onal organisations have
bccoinc a potent facbor in stimulating action by nationa] governmcnts and in assisting thcm 1n their cffcrts to improvc
econoiiric eond"j-'blons and. relse levels of living.
117
of the
748. It le futilc to atteinpt any precise estimatc
and
extcnt to which ::ecent advance.s in lcvcls of heal-th
cducatj-on (inc1ucling, in particular, vocational cducabj-on and
technlcal trainlng)-or improvenents in agriculture ancL production and increases 1n ind.ustrial pro<luctivity can be tre"c:rl to
ti:.c eetlviti-es of intcrnational organisations. It is cert,-rin,
howcver, that thcsc activitics have helpcd to generate or nake
action which in terms of cxpcno.iture and
possihle
"effort j-snational
incomparably larger than thc invcstmcnt naade by
thc iilternationit orga.nisations. They ir.ave also 1aid" the
foundations for i-nteinational co-operation in the eeonomic,
social and. relatcd" ficl.ds on an incrersing scalc co-operation
nccd.cd in thc modcrli wor1d. In a r^rord,
that is desperatcly
j.nvcstnc,-.rt
madc so fe.r j-n the United }trations
the vcry fiioiteO
e.nd the'other org;anisntions sharing in the appraisals has borne
a rj-ch haivest. Errors have been matLe and. falsc starts, but
in tire over-eIl pcrspcctivc their echicvcincnts can be considcred highly grntifying both in terms of lmrnedlate resul'r;s
and as a orologuc to thc future.
34g. In tcrms of need.s, however, the situetion crlnnot
bc viewed with complacency. These arc of such rnagnitude asj
to continue to be Ln er.er-present challenge to the corrscience
,-:rnd i:rtelligcncc of inankind. As these rleed.s energe above
thc threshold of consciousncss, becomc felt needs and' ere
translated into conscious clemands for i-mprovement, they
threatcn the stability of national govcrnmen'os and of international o:'dcr. lvluch moz'e has to be done evcn i-n somc of
the areas where the international organisa.tions operate fron
a position of s'i;rength. In other worcls, i-nte4tational
ec-onoiiric, soclal and related. action is, gencrally spesking,
not courmensLlra'bc with effective ci.emand., 1et alonc einerg;i-ng
to use
or only dimly per.ccived nceds. It is signlficslt: Fund
have
Specialonly oire examplc, that the E.P.T.A. and the
conwhile
a llrge; backlog of recluests for assistance which,
sider[d perf e clty sound, could not be r:tet c j-ther f or f inancial
cd
or for othcr rca"sons. Ovcr the last two years the E:rpand
Prograr.ime haS hlcl to t'ccluce mucl:-needed. allOcatlonS to a
numier of eount:i:ic,s j-n Asia, latin funcrj-ca and the Middle
Iast in orcler to clce orit an'inedeq.uate neasure of assista"nce
to thc emergj-ng :rations of Africa uhich, :1most without
excepti-on, urgently sccl': orrtsi-dc help.
B'
SIPCIAL PRoBIH\I
AREAS
S5O,Thepaucitlroftheresourcesavail-abletothe
intern:rtional- o:rglanisatlons and ttre trust that peoples and
governmcnts place j-n thern nake it incumbent upon- the,n to lceep
Ineir prograhmes und.er constant revievi, to search out soft
-118spots in their work, and to discuss ways and means of
strengthening prograjn,nes in areas where progress has bcen
slower than might be d.esired,. ft 1s this .kind of selfexamination whi-ch the Economic ancL Social Council- had in r,rind
in initiating the rilve-'Ycar Appraisals, It is in order
therefore, at this stage, to draw ettention to certain areas
of work wherc current and projected activitics leave somc
doubt 3s to the extent to which they will achieve desired
progress. The suggesti-ons set forth below are offered by
of illustratlon.
(i) In an increasingty lnterdependent wor1d, there ls still
far too 11ttIc, knol'rn regardlng the exteut to which the
economic and social policles and objcctives of the
different nations arc mutuall;r consistent. Und.er
constant pressure of immediatr- need.s, governtnents alre
continual]-y forccd to take decisions of great signific3.nce
for the future development of thciz' countries without
anything l-ike adequ:rte informa.tlon on thc coruesponding
policies and objectives of other governmonts, and on
the world-wid,e framcwork into which these objectives
fhe harmonisation of policies
aru expeeted to fj-t.
is an irnportant functi-on of the Unitcd- Nati-ons,
according to the Cha::ter. Neverthcless r os pointed.
out earl-ier in this report, it is an area where relatively
litt1e progress has been achieved, This is an obstacl-e
to the development of national polic'ies and progrerlmes
within thc context of broad internationel polici-es.
(ii) Most goverruoents, i-rrespective of thcir socio-econornic
system, would l.gree that plannlng is neeessary for ilie
underdeveloped arcas the very proccss of foreign
This does not necessarily
assj-stance demand,s i-t.
imply that elaborate blueprints are needed, elthcr at
the national or at the internrtional level. There is,
in fact, often danger in attempting such blu.eprints,
espcclally where ava.ilable data are lmperf ect. itlhat
is needed is ttie crcation of a general perspective
giving broad guid"e-Ilnes and orders of magnitude and,
objectives which must inevitably remain flcxible and
subjcet to frequent review. Thesc conslderations need
to be kept in urlnd in any i-nternati-onal assistance in
connection with such planning.
In the light of what has been said earlicr about national
d evelopraent plznning there i-s a pe"rticular need for a.
cautious and. responsible approach in the elaboratlon
of plans for governrnents of underdevcloped areas. Such
cautj-on is particula"rly neeessary in situatlons whcre the
essential empi-rical- data are not available or adequate
way
_
119
for cny typc of deteil-ed conprehensive planrr-ing. Thus,
priority needs to be given to further fact-firrdlng and
assistance in the establishment of thc necessary
national serviccs to thi-s et1d.
There is al so some question as to the cxtent to wh1ch
varj-ous reccntly d.cveloped theoreti-cal- methods can be
applicd without undue risk of crror by inter-
Thc need.s of tlie less
governrcenta.l org:nisations .
developed countries are so pressing and their resources
so limited that any false or faulty stuts must be
avoided.. The quantitlve econoiitic approach, apart
from requiring peri-odic revier,'r of its assumpti-ons, nust
be used 1n combination with other tools of analysis
that perinit prop.r welghting to i-r:iportant human ancL socj-al
(iii)
elements, such,ls initi:.tive, self-reliance, organisational capacity a:rc1 other intangibles ithich are beyond
Antlquaied social pat'berns
cconomic quantification.
other
and the soclal implications of technology
"refull
elements in dcvelopnient which nust be given
consideration in economic thcory ,rnd methodology,
Balaneed economic a.nd social d eve J-opmcr:.t calls also f or
a balanced approacir. to econornj-c and social- methodolosY'
It is hoped. that these j-ssucs will be further clarified
as a result of sevcral stu-dies nott t-'.ndcr way.
Wittr reference to nore specific need.s ancl actlvitics,
nearly everyone agrees that the less developed couzttrj-es
must indr.istriallse and thatr or tltc whole, they are not
industriallsing fas'b enough. There are good and val-id
reasons for this, such as lack of investrrrent capitr:r} and
tralned nanporrler, gco.rce or und.evel-oped. natural
resources (inch.rdrn$ energy), uncertainties regard-i-ng
The- fect reflains thnt tire::e
denand and m:rlcet, e tc.
is a someuhei d"iffus;e approech to ind,u.strialisetio-rr on
the part of intern:.tionr1 orgeiriisat j.ons. Technical
assistance is being nade avail.abl-e for such matters
as
productivity. fress
menpower training,
be
d-esirable 1s bei-ng
technlcal assistailcc than would
induistry,
61iven 1n the cl-evelopment of speci-frc sectors of
j-n
It does not appear thst.enougi:. is being d.one tire
field of industrial researeh on prectical problerns.
Sorce of the surveys of the pre-in'vcstment type
fostered by the Special Fund :lre J-ike1y to contrlbute
to ind.ustriel developments. Major eiirphasis, however,
partieulerly in the case of the Uaited ifations, is placcd
on a large nunber of studies, rnany of whlch appea.r to
be deslgned to facj-litate eventually the establishncnt
of eomprehensive lnd.ustrialisation plans on e national
or regional basis. Since sone of these studies are
nan"genen'[ and.
-
120
stil1 at the stage of dealing with ebstract questions of
methodologyr the caqggLs advanced in the previous
section would appear to apply here. Emphasis need.s
to be placed on studies that ere closely related. to
effective technicr"l assistance snd. arlvice of the type
associaterl with operational prograrurxes. Most impo::tant
of all, despite the indicati-ons of the Couneilrs
interestr ho large-sca1e progra,nme of concerted actlon
in the field of i-nd.ustrialisation seems to be eontemplated.
ad.vice and assistance are being provided. in thc
development of small industries, inclr-rding rural and
village industriesI United Nations Headqua.rters, the
reglonal economic commissions, the f.1.0. r F.A.0. and,
on occasion, U.N.E.S.C.0. are involved. Here again
there does not seem to be any closely co-ordinatea
approach to the subject, whieir is a real i_ssue for less
developed countries.
Some
(iv1 Progress has been slow in water resources development,
although this has held the attention of various
organisati-ons, and in particul:u of -bhe United Nati-ons
since 195l-. Year1y inter-ageney mr:etings, includ.ing
such organisations ss the W.H.O. and the f'.A.0., have
resulted in a mea.sure of progress which promises to be
speeded up 3s a result of the much dclayed. estabLishment
of tire United Nations Water Resourccs Devclopment
Centre. The lornrer Mekong Pro j ect is an example of a
major enterprisc j-n liater developrnent. Ilovlever, nuch
reraains to be done in order to cope adequiltely with
growing requirements. In view of a1l the interrelated aspects of the rnultiple use of water and the
growing concern with water development on the part of
the United. Nations, F.A.0., U,IT.E.S.C.0., W.M.0. and. the
r.A.E.A. r ch inte,;nsj-ficatlon of inter-agency co-operation
and co-ordlnation 1s ca11ed for.
(rr) An adequatc supply of energy is essential to econoilic
d"evelopnent and may become a serious problen in highly
developed countries irs conventional sources of energy
becone inadequate or. Cepleted. In this context international assistance in econonic appralsals of energy
requirernents and resources j-s d,esirable and. necessary
considering the conpllcated problens involrred. National
and regional, rather than world-wide, surveys and studies
would appear to offer the nost practical approach.
sueh studies are i-nportant not only to the- countries and
regions concerned but also to thc programme of the
I.A.E.A. Any nuclear power project nust be preccded by
a careful analysis of the energy resources or needs of
-121-
(vi
)
(vil)
the country or sre? concerned, and of the suitabillty
of nuclear power ?,s c means of neeting these needs,
conparecl with the cost of conventiona] forns of energyi
While capital investment and external financing are
crucial to economie and social development, lt is not
possible, for the reascns stated earller, to give
proper consideration to these matters ln the present
report. Relations of the financial instituti-ons
(r,g.R.D. , r.F.c. and r.M.F. ) to the united Nations
and the other organisations lnterested in developncnt
are, by the nature of their work, d.ifferent from those
among the agencies whose programmes are covered by
this report. Nevertheless, it would appear that the
It would
relatj-ons are not as close as they roight be.
relationships
close
seem particularly important thai;
should be established with the projected International
The autonorny and the need.
Development Associ-ation.
for secrecy of the financial institutions as they
consid.er fina.ncial assj.st.lnce are indisputable, but
ways and neans might be found. to assure closer contact
among all the agencies Lnterested in questions of
developnent finincing and surveys, and. in such other
questions aS inf'lationr balrnce of peynents, -anq fi-sca1
Cnd relatcd issucs. This would reduce the duplication
of studies and techni.cal asslstance efforts and make
for more realistic and purposeful approaches to
problems of comrlon interest.
Progress in education has been singularly slowr 45 per
cend. of ihe worldts children contlnue to be without
elenentary schooling. The lack of such schooling and
of more advanced. forrcs of education and training not
only deprives these children of opportu-nlties for a
fulier fife but constitutes one of the most serious
obstacles to ecoriomic and. social advance' The task of
providing appropriatc educatj-on r"t all levels i"r of
course, enormous and cal1s for very large expend'itures.
It is a tesk that j-s primarily the responsibllity of
local anil. national communltj-es and governments. The
question can, holrevcr, legitiurately be raj-seil whether
governments and. intergoverrimental organisations have
y"t succeeded in discovering the most effective weys 1n
irfricfr international assj-stance can be provlded.
There appears to be an lncli.natlon to move forward in
an entile country or reglon on all levels of ed'ucatlon
at the same tine, which may mean frustratingly slow
AlSor excessi-ve preoccupationS
ad.vances on any ievel.
-
t22
with techniques and theories of educationa.l metliod
e deI:ryi-ng fector. What appesrs to be
lacking is e con.certed strategy of international
assistance closely related to economic developnent
and aimed :r.t early break-throughs.
This cal1s for d.ifflcul-t choices which have to be faced
more directly than clppears to be the case at prcsent.
For example, should limited resources be alloceted to
prlrnary education for only part of thc children of
school age 1n order to prcserve resources for
secondary and higher education, particula::1y education of thc vocatlonal and techn.ical types necessery
to meet rco,uirements for trai-necl personnel-? Should
speclal efforts be made to promote educetion and
trainin.g, in sc-jctions of a country which offer
exceptional opportunitles for dev'elopment in agri-culture or industry, provided existing problems of
health. and trained nanpower can bc sol-ved? Assuming
that such tempoz'ary planired imbrL.'rnces in the educ:rtional
developrnent of a country had. tirc: cndorsenent and support
of the relevant lntcrnatlonal orgr"nisations concerned,
would they be ecceptable to the govern-ments invol-ved'?
Should such .n approach pr.ove &ccerrteble, it might lead"
to important rrbre.lk-throughsil, provide an early
increase i-rr nc.tional resources nve,ileble for development purposes, and set standards of achievement J-ike1y
to stimulate development throughout the country. lest
there be nj-sundcrstlrnding, the purpose woul-d not be to
make education .3n instrumerrt of econoraic development
but to relate i'b to economic dcvclopmcnt ii: such e way
that maxlmul progress would be achievcd in both ereas,
leading thus to rrbalanced developmentrr in a larger
sense. Education would provide essential resources
for economic derrelopment, while occnomlc develo,oment
in turn would provide resources naking it possible to
achj-eve education as e, human right and an end in j-tself.
may be
Another eclucation oroblem, of special importance at this
stage to some of the nost highly deveJ..oped countr:'-es,
1s thrt of education for better use of ]eisure. Many
of the cultu.ra] actj-vities and plrogrtlilmcs of intergroup and international understnitd-lng promoted by
U.N.E.S.C.0. rnight gain focus and add.ltional meaning end
effectiveness 1f nore directly relatecl through education
to the problem of an intel.ligent, constructlve use of
growing lcj-sure-tirae opportunitics .
(viii) fn spite of the i-mprcssive modern machi-ncry for rilass
comniunication and exchange of infornetion, proErcss in
international cornmunication ancl exchangc hes not lcept
_ t23
up with need. and de:aand. In the present age eountrics
should be :b1e to learn norc abor,rt each otherts
scientiflc and technological ad.vanccs - ,:.nd. learn it
nore rapidly - than now is the csse; they should. be
able to achi-eve a better understanding of eaeh other.
This is - in part - a problera of communicatlon. In
part it 1s a politicsl problem. Since communic:tion
and e>rchange arxong pcoples is a nrajor purpose of
lnternationr"l orgeni-sations, the modes end effectrvcness
of international i"ction in this fiel-d night well
given ftrrther zttorrtion.
be
(ix) Reference wes i::rad.e in the cxposition of conteiaporary
needs to thc fact thatr os a result of migration. from
the 1and, the citics of underdeveloped eountrj-es 3"rc
growi-ng at a violcnt rate, causing a host of prcblems
and difficulti-es 1n e number of vrcuys. Urban population
has grov;n faster -bhan have industry and employment
opportunity. the disruption of f:.mi-I;r 3.nfl comnu-nity
life th:rt has resul-ted fron nassive reigratj-on to the
cltles has brought in its train a host of socla.lproblci;rs, includin5J problcns of juvcnilc delinquency.
In more highly dcvclcpcd countries the reneruel of citles
has beeoroc :l proble:l of the f irst i:lrgni.tuc1e. fhe
recognition of these needs wes 3. re:r.son for the establishfl€Dt of a conccrted inter-agency programme in the field
of low-cost houslng and relrted conmunlty facilitj-cs.
This was a step forncrd but ls, of course, only r
prrtial rcsponse to pressing necc-ls. A much broed.er
approach j-s nccdccl- to urbanisation with its colrplex
of interacting ccononic and social- f:rctcrs, of a65ri-cultural- and in,-'1ustria1 devcl-opnent, of changing soelal
institutj-ons end servi-ces. This, ce:rtain1y, is orrc ilrea
which calls for conccrted action at the i-ntern:tionrl
Ieve1, sinec so rrls,ny of thc current or contcnplated
progrmmes of thc United Nations and thc specialised.
:.gencies heve : bcrring on urbanisation. It is
cncour3,ging thrt such a prograrcae of conccrted action
is :rt present bcrng cxanincd.. Ilovrever, the problens
involved rrrould l"ppc:!r rilore urgent th:.n thc halting pace
at which they are nor^r being 3ppro:Lched. by governnents
and lntergovernncnt:} orgrni-srtions alike.
(x)
In the above discussion of
r:oajor
shifts of
enph.rsis,
special refcrencc w.Is nr.rde to the necd for institutional
d,evelopment and the buildj-ng up of :dninistr.rtion.
These neecls are prrtieu.larly evj-dent in inany of the
countries just energing into statehood. In res'lronsc
to the j.r nceds, it woul-d appear clesi:r:able to increise
_l-24-
the efforts eimed at the training of
ad.m:Lrristratj-ve
personnel and other forms of assj-stance including the
provi.sion of operational and executive personnel
lOpnX). Such-progra.rrroes would appear to call fcr
intensive consultations arnong the interested
organisations, ond possibly the d evc.lopinent of a programm.e of concerted action.
35L. This llsting and. di-scussion of ten problem areas
is i-llustrativc rether thcn exhaustive. No mention hgs been
mad.c of other probleiii sreas such as conrmod.ities, for exemple,
or transport and cor.uaunications as part of economic developxcore
ment, where progress has been slow although projected
programrnes hold. the promise of future achieveincnt. In
almost s.11 cs.ses, explicitly or by in'rplic:tion, problems of
priorities and co-ordin,..iion, of budget and personnel, ere
raiscd. In so fer as these problems have a d.irect bea::lng
on present and future progranmes ancl their effective
execution, their considers"tion cleerly fall-s within the seope
of this rcport.
c.
I.
CONCENTRATION OF EI'FORTS A}ID CO-ORDINATION
Streamlinine
752. Activitles, progremmes and priorlties must be kept
under constant revicw to elirninate work of lesser import,r,nce
or no longer justified.
In Unlted Nations parlance thts is
cs.lled. streamlining. It nay nean the cornplete elimination of
one l-ine of work cnd thc substitution of another. 0r it may
mean a shift of enphasi-s, in terms of tj-rae, money and manpower
within a particul-ar field of viork, when the sta.ge has been
reached. at which governments are able to carry forward
ac'civities initiated by international organisationsr or when
the problens thernselves have become less acute. StreamU_ning,
finalIy, lnvolves a review of methods and procedures best
designecl to achleve results.
351, fhe separate appraisals are 1argel-y silent on the
sub j ect of streamh-ning. 0n1y that of U.N.E.S.C.0. r
referring to the planneit phesing out of arid zone stud,ic.s,
reentions the complete rcplacement of a large programme.
F.A.O. points out that the research and over-aU plannlng
phases of its l{editery&nean Project have been completed, and
also that the responsibil-ity foi preparing nrtionll food
bal-ance sheets is being stri?ted frorn- the Srganisation to
national governments. f.1.0. is making a continulng cffort
_
L25
to elirninate rneetings or to space them more wic1e1y. A1l
organisations appear to be conccrned with the improvement of
docur,rentatlon. The United Nations apnraisal. urgcs that the
process of streamlining by the Council on the basis of
proposals macle annually by the Secrete.ry-General should be
continued.
354. These rather Ereagre gleanings from the appraisals
do not do justice to the substantial- streaurli-ning efforts of
the varj-ous organisatlons in reeent years, although the
results may bc, and indeerl are, too l-irnited to be adequate.
Force of habit ancl. vested interests in particul-ar activities
are dangers to be guard.ed against in j-nteinatj-onal organisations
as in national govern.roents.
355. Th.ere is no single answer to the problem.
Iiaprovenent$.. however, inight he sought alcng three lines:
(i)
As suggestcd earlier, streanl-ining should be mad,e an
annual exercj-se. This calls for the submlssi-on, each
ycsr, by the exectttlvc head of each organisation, of a
succinct statement setting forth his streamlj-ning
proposals end" askingr 3s necessaryr for approprinte
actlon by the conpetent governing body of the
organisation.
(ii)
More lttention night be given to the question of the
adequ:rcy and effectivcness of thc methods used ln the
imple;rcnta'b j-on of progremnes, particularly the ways
of rend,ering assist:lnce in d.evel-o'0ment. Several of
the problen are,r.s d"i-scussed immccliatell, above in
Scction B ::cveelcc] the neecl for crre end selectiveness
in thc choice of r,rethod.s and- rpnroach if sound :-rnc'i
subst;',ntirl resul-ts arc to bc ,r.t-i;ainecl. ContJ-nuing
attention shculd- be given to thc scope and naturc of
d.ocunentation anr1. publications end tc the nroblera of
ensurlng -bh:r,t thcy havc effecti-ve clistributj-on.
( iii )
f t woul-d be uscful f or organisrtlons 'to re-examine
periodicall;, 16" conditj.ons and :ssumptions under whi-ch
particuler progro.lullcs end instn:-nentrlities have been
developed-, ':.nd to f ind" out whethcr thcy continue to be
well r.daptcc, to ch:rngi-ng cond-itlons. Unlcss this is
iLone, the uu-i,ibcr of noctings and reports eiich yc&r
nay becone an unc'lue burden on the international
secrct:ri.ats end the 61ove::nnents concerned, and an
unjustifieci chargo on lirnited, financj-lI resources'
- l26
2.
Problems
of Co-grdfnation
356. The basic clivision of functions and resp,:nsibilitles
anong the United Netlons :nC the agenci-cs in thc econorcj-c end.
socirl fields is on the whol-e reasorrable, ancl probabl;r could.
not be greatly ii:rprove d if it were now revlsed . Ncvertheless,
it roust be ecknowledgccl th:rt the economic a"nd social problcms
of thc wcrld do not rlweys brec.k do'arn acco::ding to crtcgorics
of rcsponsibility sct up by the Chartcr: of the United t\irtions
and the Constltutions of the specialiscd. agencies. Probl cns
have multiple as'pects, and often sit astrid.e the agencj-cs.
Topics merge constantly into other topics. Co-ordina"tion is
accordlngly an extremely coprplex and C,ifficul-t task, and it is
encouraging that it ]res bocn effected, so wcll.
357. Co-ordinetion wlthln the Unitcd Nations systero is
co-orc'l.ination by consenf .
It takes the f orm of cortsultations
betrrecn the Secretrriat of the United. Nati-ons and the
secreteriats of the related agencies. The consultations
between the agencies are on a day-to-day basi-s; by way of
corrcspondenee, ad hoc i:lcetings, working partics, and joint
co.rr,.rlttees; and through thc Adnini-strative Con::,rittee on
Co-ordlnation. 0n the goverrl,'rental l-evel, the United. Nations
Charter gave the Council the pri-rrrary responsibility for coord.i-n:rting the cconomic and. social ectivltles of the vcirious
United Nations orgenlsations through consultations s.nd
re conrierrclations. ]
1 The responsibility for exai:rj-nlng ancl ncking recornmend.atlons on the administretive budgets of the specialised
agencles rests with the General Asseubly. To assist the
Asseriibly in the discharge of this functlonr as r^rell as to
aid it in the consiri.eration of tkre }:udget of tho United"
Nations, the Assenibly cst:"bl-isired the Advisory Conmlttee on
Administrative and Budgetrry Questions. Therc has bcen a
morc recent developnerrt of j-n'berest in reg:r.rd. to the
Exprnded Programne of Technic:r1 Assistance: by invitation
of the agerrcies concerncd rrrd :l,t thej-r heeclquarters, the
Ad.visory Coranittee has unclertakcn spceial. studics on matters
relatlng to adrnirristr:'.tive and budgetary co-or'Lination between
those organis..r.tions end the Uni-ted l(ations, w ith special
ref erence to the oper:ation of the Xx-r::anded Programme.
-t27 158. The early prcoccupetion wes wlth tire dupli-cltlori
of actj-vities, and resultj.ng waste. whj-le there is rclr.tively
llttlc outright duplicetion 1eft, thcrc are certain grey
sreas where the delinitation of activlties is betvreen trro or
morc agcnci-es reqr-rires furthe r consul-tation and a5Sreement.
Sor^rc of these are?.s arc technic:r1 traii:.ing, reseaich, and
devclopment progranL?ing end planning. Questions regrciing
training - which arlse pertly because of diffieultles in
drawing a dividing llnc bc.tween U,II.E.S.C.0. rs intercst in
cd.ucation :nd thc intcrcsts of other organisations in thc
training of personnel in thelr flel_ds of conrpetcnce - arc
beginning to be resorvod through nutuer undeistandings and
agreerncnts. fn resea::ch, where thcre is a sirailar ovcrlapping of lntcrests, thc picture is not qultc so clear,
partieularly in view of thc increase of activity in the fierd
of research anticipated. by severcl organisations (U.N.E.S.C.O.r
W.H.0, ; id.M.0. , I.A.Il.A. in the natural scicnces, pure and
applied; and the United Natlons, U,N.E.S.C.0., I.l.O, and
F.A'0. in the sociar sci-ences). A najor effort for a clearer
d.elinitation of the fields of research to be pronoted ancl the
closer co-ordlnation of studies to be undertaken would seerc
i-ndiceted, There would. eppear to be at present a certain
amouni of overlapping in the prepr,retion of surveys and the
collection of information on the developnent problens anrf
possibilities of individi-rrl countri-es, owing to the laclc of
ad.equetc exchange or clearing-house acti-vlties.
In dcvclopment planning and programulng, problens arlse from thc fact
that while the United Nations has ovcr-all responsibility,
each of the other organisa'bions is concerned witir developncnt
planning and prograniiri-ng in its own fleld 'rnd yet cannot wisely
isolcte i-ts work from the rest of economic and social d,evelopraent. In this ereer oo major project shoul-d be decided upon
by any one organisation without fuIl prior consultation with
the United N:tions and the other interested agcncics. This
is necessary not only to avoid cluplication of cffort but also
to assure needed co-opcration on the part cf all conccrned-.
159, While duplicetion of :"cti-vitics :rppe i,rs to 3
largc extent elir:lnatecl vrithln the United }lations syster.r of
organisations, thc saiie is not necessarily true in the clse of
ovcrlaps with bileterel l.id progrnmilcs, particularly of the
technical assist3.nce ty.pe rnd sonetincs in the fiel-d of
research. During; the consultations 1n the course of thc
preparation of this report, the observr,tion was repe:rtcdly
made that the present si'uurtion vrss uneven. As the rcsult
of informal contacts ancl co-operatlon, the duplieatj-on of
effort by multilateral r.nc1 certain major bilateral governnental
progrs^mmes has bcen reduced to a mlnir.lum. In other cases,
lnclud"ing the lmportant v,rork of soine non-govcrniacntal groups
..I
-LLU-
DQ
foundations, consul-t:,"tions and cont:cts appear not to be
adequate and overlrps and dupllcation of effort therefore are
uncluly frequent. It woulcl be beyond thc scope of this
report to recommend. specific remedies. It rnight be
suggestcd., however, that since 'rcountry planning'r is at the
b:,sis of nost progrerunes of technical asslstance, the
governments of recipient countries ere in a strstegic
position to press for nore ful1y co-orri.inated activities
Furthermore, it would appesrr to
within their territories.
be in the interest of the contri-buting countries to avoid
any possible waste of resourccs by viewing multi1ateral and
bilateral programlnes as but two different approaches to the same
enc1, anrl thereforc to make sure by way of appropriate consultations that there ls elose co-ordinati-on.
and"
360. Beyond the preventj-ve approach - the avoidance of
overlaps and conflicts the need, is increasing for joint
future planning of progr3.l1iles, ever closer co-opcretion on
all levels, and programrles of concerted actlon. Thj-s
ernerges with great force from the atrpraieals. They reveel
a large number of fiel-ds in which thc various organisations
have a common lntercst, irhich lend themselves to intensified
cD-operation, and. ,,^rherer indeed., such co-operatlon is
impcrative. Two recent factors accentuate this need:
(i)
(ii)
The growing recogni-'cion of the inter-rela.tionship of
economlc and social fgctors and of the need for bal-anced
or complenentary economic and sociel d.evelopment whlch
calls for a co-ordination of prcgrslnmes and activities
in breadth and in dcpth. As never beforer co-operatlon
1s requirecl of econonists and social experts, of
doctors and engineers, of experts in agriculture and
industry and others, 1f such balanced development is
to be achieved.
States, particularly ln
Africa, which necd assistence of many types, including
sssi-stance in devclopilent planning and in the formul-ation
The
rapid
erilergcnce
of
new
of requests for assistance; this nakes it lmperatlve
that there should. be close co-operation and co-ord.ination
rather than cornpctition among the lntergovernmenta]
organisations as they make their resources availabJ-e
to these countries.
76L, In view of these clevelopments, some observctions
are appropriete on the instrumentalitics of co-ordination,
both at the secretariat and the goverrurlental Ievel. In this
conncctlon, it should be clearly understood th:t intensificd
co-ordlnatlon must not be at the expense of efflclency, by
_tzgrequiring that the heavy appa"ratus of lnter-agency coord.ination be put into operation every tlme soinething needs
to be d.one. As a matter of factr some of the existing
co-ord"ination procedures and. practlces might well be
sinrplified.. In this connectlon, for example, the orga.nisations night revicw the cluestion and practice of reciprocal
representation at each otherrs roeetingsr with a view to
reduc-i-ng ceremonial presences and ensuring more active
participation at cach othcrrs neetings where issues of conamon
i-nterest are under consicler:ltion.
152. lately thc Adninistrative Committee on
Co-ord.lnation has been reviewing its maehinery and. procedures
with a vlew to r:aking them more effective. A report on
this subject will be subr,ritted to the \O*h sesslon of the
Corrncil. It would. therefore not be appropriate to corcnent
at this point on these natters. Suffiee it to say that
A.C.C. is an essential link in the chain of co-ordination,
and its increaslng preoccupati-on with policleS and programlnes,
is encouraging. It
rather than with adnlnistretive i-ssues,
'bhat
it i-s composed of
fact
the
from
strength
d erives its
Nr"tions,
the speciellsed
United
of
the
the chief executives
essenti?ls comany
in
agencics and the I,A.E.A.1 and that
of the
actions
oidinntion cones from the attitudes and
By
legislation.
cxecutives rathcr then from legislators and
resthe sarnc token, this rlearls th:rt A.C.C. cannct escape
ponsibility if thcre arc serious flai^rs or deficiencies in
co-ord ination.
763. Govcrnments riiust be expected to exereise their
co-orclinating function within their own ad,nij-nistratlon on the
nationc.l 1evel, in the representative policy and ection bodies
of the lntergovernmental organisatlons, and, specifically, irl
the Econonic and Socia1 Council. For a variety of rea'Sons,
the situation cannot be considered. fully satisfactory on any
of these levels,
564, Considerable efforts have been nade by thc General
Assci';rbly and by the Councll-, 1n the fori:r of recomrcendations andresolutions, to highlight the irnportance of co-ordination on
the national level. The results harre not been very
encoureging. In many lnstances governments continue to
speak witfr-d"lfferent voices in the different organisati-ons
and -bhus d.enonstrate a lack of national co-ordlnation. Thelr
representatj-ves nay pleati. for bigger and better budgets in
tha autononous policy-iiraking body of one agency while voting
a recommendation in the Generel Assenbly thct budgets throughout the United Nations sys-bem shoul-d be stabilised or level-led.
off. They nay Support a host of new and unrelated programnes,
big and sma]I, in soree of the specialised agcncies, whi-Ie
complai-ning in the Counci-I about the proliferation of progrsmtnes and urgi-ng
grcater concentrati-on of effort.
-130365. There ls little that j-ntcrnetion:rl- bodies such es
thc Council cl.n d-o to lenccly this situati.on r'iithout rllnning
the risk of bcing :r.ccuscd of interfcrence wj-th the prercgetives
of sovereign St,r.tes, It night be notecl, howcvcr, that l-:lck
of co-ordlnation on thc nr.tional lcvel ney ':t tines be due to
a brcekdown of ccrru-runiertlons between the intergovernmcntal
organisations and the gc)vcrlurents , and within tho goveininents.
It woulcl appeor the.t debates and secretariat documentaiion
covering import:nt econonic lnd social issuus and. frequcntly
raising problens of co-ordination, often dc not ponetrnte tc
those persons in netional adrr.lnistrations who rtrould nost
benefit fror.l the:1. To some extent thj-s miry bc d"ue to the
f:ct that too many docuncnts ere issucd, th:t they are too
cunbcrsone, and that the dlstributj-on serwices end public
i-nfor::ration facilities of the intergcvcrnr,r.ental organisati-ons
lrc not adequate. Shoulcl this be trr e, then governncn-bn and
intergoverru:rental organisatj-ons ilust finc'l. rreys to lmprove thj.s
s ituation.
356. The diffieulti-es of achicving eonnlon policies and
co-orclj-nation through thc buclgettry and poli-cy-nalcing bodies
of scpnrate and. rutonor,rous agcnci-es :-lre cornpound.ecl by one
ci-rcumstanee which is frequently overlooked. Intergovcrruriental
organisatlons i-n speeialised fields aro unlqrre in thet thelr
progr:r"rnmes and budgets .rrc d-eterroined by public bodies consisting in large ioeasure of individ'ual-s who are not only
governracnt rcpresentatives (or, at 1enst, enrointed or
proposcd by governnents) but who nrc r-l-so p::inarily exper:ts
end. prrctitloners in thc spccialiscd ficlds in qucstion.
Evc:n whetre they are lnstructed by their govcrnments, which is
not always the csse , they mey draw thcj-r inspiretion ancl
guic'l:rncc from their own bsc]rgrounC and expcri.cnce or t]tc
aclvice of bodics ciedicatcd to special fields l,nd interests,
such 3,s the }iational Coruoissj-ons in U.N.]r).S.C.0. r or natj-onlI
hcalth groups. The positive side of this sj-tu.r,'bion descrvcs
full recognition. It frequently rcsults, irr :rddition to
expertne ss in the for:aulation of progri[nrrl€s e in a remuki.ble
spirit of declicetlon, cincl hencr, a strong drive ancl will to
succeed.. fn so flr a"s this situation m:Iy calt.se dj-fficultles
of co-ordinatj-on viith the policies anrl ectivities of .other
lntergovernncntll organis:tions, rencdics sirould not be sought
by inrposing narrohr goverruneirtal restrictlons and controls.
Hor,rever, it is tr..' be hopcd - and therc are irrc].ic:'bions of
progress - thrt as hebits of co-opcr:l.tion between the v:"r'i-ous
orginisetlons be come inore firr,rly csteblishcd, the re will grow
up a grcater awsreness in the po11cy-r,i:r)ring bociies of thc,
inter-rel.ationshlps of nceds anci prograriines and activiij-cs
throughout the f:rr,rily of United r'fations organisations. Herc:
agaln n:ltional goverrueents c&n serve ti:clr own intcrests ancl
titose of the intcrnatiorre"l conmunlty by persi-stent efforts ruithin
their own eountrj-es to aehic.ve a conscnsus of vievrs among
sectional i-ntcrcsts.
.
L1L
A fr-irth.er dlfficulty ari-scs from thc fret that the
intcrnational orgenisations develop their respective progrii.i.nncs and buclgets scprrately and thcre is thus a risit thet
co-operstive action in a giveu arca nay bc irnpeded by hck
of resources on thc part of one of the agencics concerncd.
Io cnsure effcctivc co-ord.inated. action, fuI] a.ttentlon
should be given by alI agencies to their respecti-ve
responsibilities in an area caIllng for their perticinetion,
so as to avoid a lack of belence in the combined cffort.
through the Council- l-eavcs much 'bo
367. Co-ordin:ition
j-I
was highl-y cff cctive in the c:r1y
be desired. Thc Counc
cl:rys of the Unitccl Nl,tir;ns in setting up or cnccur:ging the
esteblishmen'b of cc-r--ordinrtion mtcliincry such as the A.C.C.
It cleserves sr"rbst:nti:11 credit for thc progress that has beei:
made frorn the clinj-n:r';ion of dup11c:ti-on, the esteblishnient
of prioritics and thc concentration of efforts, to conccrtcd
ectj-on ruhere pcssiblc. It hes :aade I signlficant contribution
in cl-r"rifying co-orclin:,.tion proccsses nn61- prCrcedures and in
having flrrnly estrblishccl co-ordination cn I basis cf
voluntrry co-operation anrl consent.
368, In recent J'cers, howcvcr, the Council and its
Co-ord.inatj-oi:. Conu"itlttec h:"vc found it incrctsingly
difficult to rj.o fu}I justice to their co-orclj.nation responsibilitics bccause of the multiplicity of organisa'tions,
policics and prop;rlaines tc be consj.clered- :nC. thcir complic:'r"ted
intcr*rclationships.'t'he volume of d-ocumentr.tj-on reaching
the Counci-l frorir the secrctr-riats of the different organisations, from A.C.C., ancl from other sources has grown bcyondthc ability of many delcgetions to re:ld end to mester. Yet
rnuch of this rloeuracntatj-on is necess.sry for :n understrnding
of thc manifold prograrjrrlcs end activitics to be co-ordinr"tcd
and., as a raattr:r of fact, i'b is in most cases pre pared, irr
response to the Councilts own requests. As 3. consequencc
of tnis sj-tuation, governnicnts have found. i't d-ifficult to
bricf the ir represent:rtivcs adequatcly, and the limitecl nunber
of no.ctings r^rhich thc Cguncil is abl-c to set :lsirle erch suilJxer
for co-ordln:u'bion purposcs is evidently insuffici-cnt without
i:]orc ad,equate prep?.r"ti,rn for thesc nccti-ngs. This is a
serious n:rttc::, sin.cc frilurc on thc put of the Council in
this rcspect ne-rns thr:.'b thc prcpcr encl cssentirl r'o1e of
govcrnnents in thc ficld of co-orcLj-nrtion is not being nriniei-ned. Thc Councll necds to be frccd- fron an excess of
deteil cnd. thus enabled to devote its ti-ue to 3-lrger q'urestions
of policy ancl progrslrme co-ordinrrtion.
76tQ, It is nct for the :uthcrs of this report but for
thc Council itsclf to find, r,\iays:nc1 ncans to this cnd. It
can be statecl, however, thet unless the siturtion is substantially inprovcd, the present report nncl the cfforts which
htve gone into its preparation will et bcst bc only of Linited
use.
-t32D.
1.
BUDGETARY ISSUES AND GROiiITH POIXNTIAI,
Bgleetary Trends
77O. The separete appreisals do not pernit any ovcrof the rer.gnitude of likcly changcs in budgeta:.y
requirenicnts. They clo not give eoitp:ra,bIe rlnta. Thc
cstiL,r:utes rcnge frour very cautious stl.tcucnts that ir.orc
moncy will be needed to :lntlcipated rnnucl pcrcentage incrcascs
ln rc6Jular agency budgets from l.! per cent. to 11 per ccnt.
Thc hlghest nte of prooosod lncrersc appelrs in the report
of th.e 8.A.0. which cs'binatos that for thrt portion of its
bucigct rclrtlng to its tcchnical ancl econon'rlc worlc annual
rate of j-ncrc,lse nay be of thc ord.er of 20 per cent. The
F.4.0. antlcipetes iL iilorc rapld rlsc in its budget curve for
the ncxt few ;ru.t3s on thc grounds of the r.ragnitude and.
inport:ince of its anticipated prograr.lrres and thc fact tho.t
the I'.4.0. budget grew r:rthcr slowly in the ccrly years.
Thc United Netions has cstiraated. that by 1954 it nay rcqulre
fron 1ts asscssed budgct rn additional fi2,5 to $3,5 milrion
for its activlties in tlrc eccnonic, socirl anql related fields.a
Thc probl-en is complicrted by the fcct that sone rgencies
j-ncl-udr- in thej.r broed cstinatcs not only funds to be derived
fro:,i their asscssed budgcts but :rl-so funil.s fron such scurces
as .1,.P.T.A., Special Funci, U.N.f .C.E.F. r &rld. v:lrlous othcr
voluntary funds and accounts. other lnpralsals are largely
silcnt on such cxtr:" buc,getary funds. vague ss most of the
estin:rtes are, it rnust be added. thlt, aliaost wlthout exccnti-on,
verious intergoverrtnentrl bodies which consiclered the appiaisals
as prep:rred. by thcir secretariats, reserved thcir posltlon on
thc fi-nrnci:l csti-mates, und.er thcse elrcrrr:rstsnces, it is
considerecl that :rn lndlc:r,tion of trcncts based. on past
ex'pcricnce i;right be norc useful. Table VfI gives the
relcvrnt expenditures for each organisatlon slnce 1945, with
a proportionrte allocation from the total- unitcd. Nations
buclgct for econonlc ancl scciar activj-tics.
cherts r-rrr
illustrete the trend 1s dcrivcd- fror,r thc d,iffcrences in the
o11 cstiriles
.,
annual- expenditurc toti'lJ_s.
171, A f ew 55cnerc1 observati-ons are in ord.cr:
(i) Any arbitr:ry stabilisetion of buclgcts et present 1cvcls
is nct d.es j-rr.ble. Additional_ funcls are und.oubtedly
needecl for the ,progrsj:1ioes and ectivltles 3s clescribcd..
Thc appraisr"ls in general offcr ainple justification for
ad.C.itionl.l revenue. More progra:ilre funds eould encl
should bc usefully cnployed without greatly increasing
the lntroductlon to its revised appraisal (n/rueo/
-R",r.I)i rn
or December 1959, it is stated by th6-United Nations that
"the cvidence of the months that have ii.tervened polnts to iI
conslderably more rapid expansion of internatlonal action j-n cer!"i1 majcr field.s than was assumed when the appraisar rras
d.rafted.rr.
-173_
administrative overhead. The need for increase is
particularly eviclent in the clse of such operational
progralrLle as those assisted by E.P.T.A. and the
Special I'und.
As regards E.P.T.A., whlle the resollrces have lncre.r.sed
gradually year by year, they remain far belol^r the
l-evel requirect to cope with the technicel assistance
needs of the less developed coun'trles, taking into
account the el:lergence of new States, particularly in
Afriea. The saille evidently holds true of the Special
Fund although it has been irr existence only one year.
ft wou1d. not be unreasonable to think i-n terrns of en
early increase ln the fj-nancial resources of the trvo
prograirrnes to a 1evel of at least $fOO milliorr a year,
as conternplated. by the General Asser,rbly. The
consequences of such an lncrease on the effectiveness
of the assistance which can be proviCed through
lnternational channels would be out of el.} proportion
It wouId. not only enable the
to the sum involvecl.
progral'.1mes to rneet the mounting needs for technicol
assi-stance of the newly independent countrJ-es, ancl
countrles at a si:lj-l-ar leve1 of econonic CLeveloprcent,
but woulcl also give much-needed flexibility to the
Simlls.r observations
whole renge of their operatlons.
cr:uld be made wi.th re6lard to other operating progr3.itrIles.
(ii) By and large, the very tentative nature of the estimates
ancl the size of incre,'eses contem.plated inclicate a
conservative attitude on the part of rnost of the
participrting crg:rni-sations and their secreterlats.
lhey are evldently thinking in terias not only of need.
for additionrl funds but also of avail-ability.
(iii) tfri"s emerges clearly fror,r the obscrvation made in
several appreisal-s that prograiilmes ancl buciget d.evelopments will h:ve to be revi-ewed if and vrheil governnents
of
are able :.ncl will-ing - for exoraple as a result
savings from dis:.rnaiilent subst,rntielly to j-ncrease
The revi-secl- Urrlted. Nations
their contributions.
appraisal pur'S it thus: "It shoulcl moreover be clearly
understooci thiut if certrin niuch hoped for developncnts
occur, for exanple, a oignificant measure of world-wide
d,isarrnanent, the whole picture presented. in the appraisal
n:ay need. to be raclical-ly revised. The estirlete woul-d in
that c&sc d.ea1 no-b with an explnsion of activities
l1ni'ued by the current scale of the United ldltionsl
budgetr 3s the figure of $3.5 raillion did, but wj-tir the
organisirtion of United Nations activities on an
enllrely new scale.r'1
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tr'ootnotes:
?/
y/
This figure represents expenditure dtiring F.A.0,ls first
financial year, from 1 JUI;r L946 tc 3I December L947.
The allocations' from the Expand ed Prograrrlue of Technical
Assistance to 1,{.M.0. and I.T,U. for th.e years 1951 to L955
are included in the fi-gures shown for the United Nations
Tecir.nical Assista;rce Admini-stra,tion.
e/
!/
fncludes the United States contribution of $5001000 for
Iabora,tory.
a
The United Nations figu.res for economic and socla"l activities i-nclude an amount for conference servlces cos'bs but
no a"roount for admlnistration or general etipenses. Comparable fi6;ures ate avail-able only from L947. The figures
are gross figures. The Utrited }lations has a gross budget;
the a"mounts paid. for salaries and'ara€ies are subject to staff
assessment.
g/
A contribution of $4801000 ma,Je-each_Xlar in 1959 and 1960
for aCministrative el(penscs is included. ln the allocation
of extra-budgetnry fi-rnd.s und.er the United. ltTations Refugee
trtund.
t/
The bud.getary fiEures for U.N.f.C.n.F. exclude th.e amounts
of the W.II.0. and F.A.O. Joint Progrlmmes, which are'sho',,nt
u:nder the respective specialiser). agencies activj-ti.es.
MILLION DOLLARS
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-140-
(:-v; The role pl:yed by voluntary funds in thc operatlon of
the programnes and r.ctivities of the Unitecl Nati-ons and,
the rel-ated agcncics is ilarkc'd-ly increasing. In the
case of some agencics, the resources cleriveil fron
E.P.T.A. and the Spccial Funcl are larger than their
regular budge ts basecl on asse ssme:rt of their l;lembers.
ff the resources of the Special Fund shoul-d increase
substanti:lIyr &s antici.patecl, nost if not all of -i;he
organisations will find the:mselves in this pr:sition.
These funcls are evidently needed ancl most welcome.
}fithout them ]crge prograrj]rnes, particularly in the
technlcel assistance fic'ld, couIcl not long survive.
However, clifficulties a::ise both for the managements of
the voluntary funcls and for the agencies with which or
through whj-ch they operate. Ihe agencies artr confrontetl with two probler:rs. tr'irst, thcy face the
prospect that more and nore of the operationll
progremmes for the execution of which they become
responsible undcr E.P.T.A. and raay becoiae resr:onsibJ.e
under the Special Fund.r or for which they are expec'bcd
to proviCe technic,rl. .:.d"vice encl scrvj.ces (U.N.I.C.lJ.I.
operations) are cLetcrrnined not by their governi-ng
toaies u11i'uy other bodies, such ut-inu ?;y;rlifn} Council
the Special Fund oz' the U.N.I.C.X.F. Llxecutive Boorcl.
This not only tends to lir.tit the progrer,i::rj-ng function of
the governing bod-ic.s of the :r5lencicsi brrt Liey unsettle
any balance they arc seeking to achicve within their
programiies. It 1s also posslble thiLt thc country
programiles under E.P.T.A., ancl perbi-cu1:;r1y recluests for
Special Funcl assistance forrnul:',ted by €icrverniilents, nr"y
not always follow thc schcme of priori'bics th:t such
governing boilies raay harrc adopted.. To sone extent tl:esc
problems nay be uct, e spcc j-aIIy in rcgarcl to the opcrations of 'r;he Specill FuncL, by e long-tern approach
cgreed bctwcen the; Jpccirl I'uncl. ancl the :rgencics, b:sed
on the consj-deretion of long-torm nceds end the proper
tining of inclividu:rl projects. Thcre ls cviclence of :r
d-esire for such r.n r,pproach on the p:.rt o:e the Speci:]
Fund.
1 In the case of E.P.T.A., the Secretariat of the United
Natlons and the relatecl spccialised agenci-cs participate in
prograinming through their r,rembership on the Techrr.i-cal
Assistance Boerci (T.A.B. ).
of
-
141
The second l:roblen of the agencies is to fincl not only
the necessary tecnnical fielc1 staf.f bu-b to build up
and finance suppor''cing units and su1:ervisory persoirnelat their headqu.arters. fn turn, this raj-ses the
question of the e:rtent to which such hea"dquarters
personnel can ancl should be fi-n.anced fror,r extra
bud.getary sources rather than from the regr-rIar bud.gets.
The question of such staffing is, of course, eo,uall;r a,
rnatter of vital concern to the m.anageineirts of the
voluntary funcls, sirrce in order to avoid. d.up-l-ication of
staff they have to rely on the expertness end technlcal
services of the Urriteci Nations anC the related agenci-es.
As regard.s U'.iV.f .C.E.F. and E.f'.T,A., whieli have g;rown
slow1y over the yearrs, errengeirer:.ts have been woriceclout lrhleh, by and large, satisfy the ln-bei'ests and
needs of botir sides, et least as far as present
prograltuiles are concerned .
By contrast, the ner,rr Special
Fund. has to contend with'some iiifflculti-es.
The
programmes whlch it finances requlre considerable
preparatoryr evaluatory and supervisory work, both at
headquarters and in the field, in vj-ew of the relatively
large si-ze and conplex rrature of -bhe projects undei:tahen.
fn nany instances, the kinds of pe::sonnel requlred to
help formulate, eva"fuate anC supervise Special Fund
projects - h5riiraulJ-c enginee::s, geological surveyors,
etc. - are not ord"iiraril.y to be founci on th.e staff of
intergoverrunental or5;anisa,tions anC the lunci is harcl.ly
1n a position to sssurne financi-."l.1 responsibility fo:: the
recruit::rent of' periiincnt staff of the executin.g
organisetlons. This sltu.ation teirc1-s to clelay the con-
sideration
e:<ecution.
enc'L
inltia.tion of
ncinr
projects
ancl
their
No easy answer can be found to 'bhese q.uestions, altJrough
progress is being nacle in their sol-utlon. They have
to be raj-sed, hoi,rever, in the conte>lt of this repor'c
because the ilevelopme,rt of fritu,.rc progjrai'fimes and t]reir
scope is bounil to be affectecl by 'bhen, lfhatever
difficulties i,ray be encounterr:d, it i-s beyoncl question
that voluntarlr multi-purt-lose fund-s have a great rolc
to play j-n assisti,rg economj-c anci socie3- ctevel-opi::nent.
They make for .'t brord perspectivc in prop;rai,ulint 1nd
for co-operrtion be',;wectr the v:r::ious iechnlc.rl agencies.
In recent ye':::s there h.rs been l" tendeney to cre:lte, in
.:r.dd-ition to these r;iu1.t1-purpose funds, othcr volunt:"ry
func'is or :ccounts lrcrving such specific purpo$es lts
mrlerie erldic:rtion or :-rssis'bazrce to refugees. A 65ooc1
case crn be nadre rlso for such. singj-e-purpose funds.
-
142
Care should be t:rkcn, however, to rvoid e prolifemtion
of these funds in the financlng of future progr3flrn€sI
lest there develop r. self-'defe:tlng competition between
them and be-bween thc egencies whic[ sponsor them.
2,
Manpower
Igternationrl-l-y Avail?ble
372, As just incLicr"ted, the growth potcntial of
interna"tional orgr.nisa'uions is deterrnlnecl not only by their
programnes and the fund.s et thelr disposal but also by i;he
availelllc for intern:i,tional- work. lnlhil-e only
obliquelJr raised here ancl there 1n the apprrisals, this su,.bject deserves some further comments along the following lines:
Inanpower
(i) To function efficiently, internation:,l sercretariats
require thrt n substantial portion of their personrrel
be highly tnined end. qualified. A knowled.ge of more
then one language is oftcn necessary ancl always
desirabl-e.
(ii) Most of the internrtionll secrcterj-:,ts were built up
in the post-war period or earlier, when the work of the
internatlonal orgrnisations was considered to be
essenti-:r1-1y one of research, the est:r.bl-j-shinent of
standerds end conventions, tl:.e servici-ng of intergovernmental mec'r:ings, and cleering house functions.
The orgn"ni.setion, structure, type and sj-ze of staff
were gener.'e11y besed on thj-s pre lise.
!trith the shift
to clevelopment encl oper:rtions rnd the growth of
intern:rtiona'l r"ction progr"mnes, new ancl different
kincls of personnel rrere requircci. As en illustretion,
reference has been n,rde llreecly to the pcrsonnel
problems encounterc:c], in the preper:rtion and. executi-on
of projects finrnccd by the Special I'und.
The shift in pcrsonnel needs crlls for the :ssignment
or re,pl-ecement of sorrle of the ex.lsting personnel, It
requires, in ad-di'bion to the recruitnent of competent
technieisns, the usc of reseerch personnel trainccl to
relete their rese:Lrches to action progr3nries. Ancl it
means the cmployi.nent, in increasing numbers, of an
elite of gencrrlists caprble of dcrling effectively
with governmcnts :rnd governnent clepartments, nen who
will comnancl the rcspect of both locrl- ancl international
personnel. There is evld,ence th:t the problem is
recogni-seo rrrC that progress is being ilade in the
grrdurl lntegrrtion of the several types of international civil serv:"nts within internetional secretr-,"rirts
which ere thus bccoui-ng nore nel"rly
cout erxporary need-s
.
ad
justecl to
-t+7(iii) However, the internatlonel recruitnent of individuels
of requi.recl conpctcnce re'r:i'lins clifficult.
'Ihey are
scsrce irr the less d.eveloped. couirtrj-es and, if highly
qu:rlified, lrrc -rpt to be d.esperately needed et hoilc.
Recruitreent in nore highly cleveloped. countries n3y
also run i-nto gre:t clifficulties because of the
conrpetition for cortr"in types of experts a"ud
achui-nistrators on the part of nrtional governnents e'nd
priv:.te entcrprise. Furthermore, the importance of
service within i-ntergovernmental organisations is not
always recognised, with the result thet an indivicinal
retu.rning to his horoe country mey have difficulty in
finding r" suitablc job. Better arrangelnents necd. to
be macle by goverr$lcrrtS to facllitete the re-i-ntegre"tlon
at appropriatc levels Ln national eclministretions or
elsewhere of ind.lvidurls returning from en extendcd
period. of ser'v1cc r,,'ith lnternetionel organisations.
(iv; To malce the best possible use of limited personnel,
neasures nright be 'uc.ken to assurc greater nobili'by.
It should be nadc eeslcr then it appelrs to be at
present to use such personnel- 1n rtrhatever ]ocatlon their
knowled.ge rnd b:,clcground, can be put to be st ad,vantage.
(v) Iaina11y, lt shoulcL not be forgotten thnt internatj-ona"l
organisations, evcix whon 'thcy do not lr.rve et heaclqu:rrters or 1n the regional ancl field offi-ces ell th.e
specialists necesslry to knolr all the snswers, c3n
sti11 g.i-ve cffectj-ve help to govel'runents. Provicled"
thcre i-s a coinpc-bcnt core of sui:porting services in
the intern:tion-r1 sccrcteriets and thet they retain
uttiiaate responsi-bili.ty for the execution of their
progrsi;Iii1es, they c;r.n telce adv:intage of the specialisecl
knowled.ge of prof cssion:rl and technicr.l groups t
universitlcs, cottsnlt:nt firrrrs, and non-governrnent:rl
organis:itions throughout a inultituoe of countrles.
They cerr tl:us pcr-form thc valuable service of beitlg a
broker, not orrly honest, but indcpenclent ancl with
ui:u-suall-y .qood conncctions.
EPIIOGUE
It ls in this
past is prolotue" .
There
perspective that thc prcsent report has to be viewccl.
1s notiring fi-rreI about r-t; no ultima.tc sol-utions ore
off cred . The rcport pl'(,sen'irs a pi-cturc of econonj-c, social
and rel-'rted neecr,s anO. problems in the conteieporary world, So
br,rsic and decp-sc,rtccl. enci of such nagni-tucle :ts to call for
ever greater efforts, nrtionnl and international. Any
thoug[tfu.l
consideration of these needs and prob]-ens mal<es it
-bhat
clcer
rauch of the fr-r.1rr" courss of rugnkirld depends on
373,
i'What j-s
thcir solu-tion.
-
l1
II
t+4
374. It has becorae equally clcsr that the United
Nations and its sister organisations have a greater contribution to make in the promotion of economic ancl social progrcss,
of hcalth and educati-on and cultural advance, and of bet-ber
standards of life in larger freedom. To help achieve thcse
encls they have cleveloped programmes ancl activlties ancl o.evisecl
method.s and approaches which have proved their worth. Thcy
h:rve learnecl to ask the right questi-ons and. to recogni-se their
They realise that whet has been accoiltph-shed.
own limitations.
to date, whi-le in many cases impressive, is but a beginning.
Trken as a whoIe, their najor programmes for the yesrs to
come lre realistj-c and hold a prornise of lncreasing impact.
The growing strength of these intergovernment.!.1
375 .
organlsations derives, in no small part, from the fact that
in thei-r pursuit of economic and soclal objectives they have
bccome j-ncreasingly responsi-ve to the dsily needs and the
long-range aspJ-rations for a better life of peoples evcryi^rhere.
Not on1-y governments but also inclivid.uals i-n nany walks of
l-ife have been clrawn into active participation in their
programnes, in agriculturc and ln industry, in the i.,nprovemcnt of health and. educ:tion, in conmunity development and
social welfere. They heve penetrated to the grass roots
wircre growth begins. Being l,ru1tilateral in character they
encourage a spirit of pr"rtnership atnong an ever increasing
of countries.
776. As to relations :mong the organlsations, a spirit
of closer co-.operr"tion is grining grouncl. This stands
revcal-ecl 1n the lirge nunber of progrnrnmes, pre sent and
projectcd., in which two or r;1cre of the::r are joining forces.
The trcnd is bccorning strongcr as the inter-relationships
bctwecn the verir-r-rs 'Orogr:truics are ilorc ful1y re:rIised. It
is hopecl that this rc'irort r,iiI1 contribute to that end. At
present it j-s too carl;r to speak of rrthe great design", but it
cmcrtes clearly from the apr;lrais3ls th:"t in nr,ny broad. fiel-ds
joint or conccrtcd action r,'rill increasingly talce the place of
isoleted prograilirilcs that are unrelatec-L to the main arees of need
nurirber
anc-L
work.
377. For al-I these re:rsons there j-s cause for quiet
this rpprgj-sal 1s but il prologue to a greater
confid,ence th:Lt
future.
I
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