A historical examination of the structural development of the secretariat of the United Nations

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A HISTORICAL EXAMINATION OF THE STRUCTURAL DEVELOPMENT OF THE SECRETARIAT OF THE UNITED NATIONS

A T h esis P resen ted to the F a c u lty of th e School o f P u b lic A d m in is tra tio n U n iv e rs ity o f Southern C a lif o r n ia

In P a r t ia l F u lfillm e n t o f the R e q u ire m e n ts f o r th e

Degree

M aster o f Science i n P u b lic A d m in is tr a tio n

by James S t e n i u s R o b e rts A u g u s t 1950

UMI Number: EP64501

All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion.

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Pu.

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This thesis, wr itt en by

u n d er the gu id a n ce of h. I

j SL.

F a c u lt y C o m m i t t e e ,

and a p p r o v e d b y al l its m e m b er s , has been p r es en te d to and a c c e p te d by the C o u n ci l on G ra d u a t e S t u d y a n d R es ea rc h in p a r t i a l fulfill­ me nt of the requirements f o r the d e g r e e of

Ma 3ter.....o.f...S.g.i.e.no..a....in-..P.U-b.l-l.c....A.djm.ini.3.tr-a t i on

7 Date.....

Faculty Committee

i fro

Tp............i

TABLE OF CONTENTS CHAPTER I. II. III. IV.

V.

PAGE

PURPOSE AND AREA OF RESEARCH............................

ORGANIZATION OF RESEARCH AND METHOD OF PROCEDURE THE LEAGUE EXPERIMENT.................................................... . . THE

PREPARATORY COMMISSION.............................. *

. . . .

THE WORK OF THE PREPARATORY COMMISSION...

E valuation of

26

43

t h e Com mission, . . . .

43

t h e w o r k o f t h e C o m m is sio n . . .

THE ORGANIZATION OF THE SECRETARIAT.............

9 13

THE REPORT OF THE EXECUTIVE COMMITTEE TO

Summary o f t h e w ork o f

VI.

1

56

65

The E x e c u t i v e O f f i c e o f t h e S e c r e t a r y - G e n e r a l .

67

D epartm ent of

S e c u r ity C ouncil A f f a ir s . . . .

68

D epartm ent o f

E c o n o m ic A f f a i r s

................................

71

........................................

73

D epartm ent o f S o c ia l A f f a i r s

D epartm ent o f T r u s te e s h ip and In f o r m a tio n from N on-S elf-G overning T e r r i t o r i e s D e p a r t m e n t o f P u b l i c I n f o r m a t i o n .............. L eg a l D epartm ent

V II.

.

76

78

.................................................

C o n f e r e n c e a n d G e n e r a l S e r v i c e s ...................

83

A d m i n i s t r a t i v e a n d F i n a n c i a l S e r v i c e s ....

85

81

THE DEVELOPMENT OF THE SECRETARIAT UNDER ACTUAL WORKING CONDITIONS .................................................................

90

E xecutive O ffice of th e S e c re ta ry -G e n e ra l.

92

• •

D epartm ent of S e c u r i t y C ouncil A f f a i r s . . . .

96

iii CHAPTER

PAGE D e p a r t m e n t o f E c o n o m ic A f f a i r s D epartm ent of S o c i a l A f f a i r s

...................................

99

........................................

102

Departm ent of T r u s t e e s h i p and I n f o r m a t io n from N on-S elf-G overning T e r r i t o r i e s

..............................

D e p a r t m e n t o f P u b l i c I n f o r m a t i o n .........................

106

•

L e g a l D e p a r t m e n t .....................................................................

106 109

D e p a r t m e n t o f C o n f e r e n c e and G e n e r a l S e r v i c e s .

Ill

D epartm ent o f A d m i n i s t r a t i v e and f i n a n c i a l S ervices

...........................................................................

V I I I . AN ANALYSIS OP THE DEVELOPMENT OP THE SECRETARIAT The b a s i s o f o r g a n i z a t i o n .

.

119

..............................

119

The p r i n c i p l e o f h i e r a r c h y .............................................

122

The s t a f f c o n c e p t ......................................................................

125

C o o r d i n a t i o n ................................................................................

126

S p a n o f c o n t r o l ...........................................................................

128

C o nclusion

...........................................................................

130

BIBLIOGRAPHY........................................................................... ........................

132

APPENDIX A:

.

115

E x c e r p t s from o f f i c i a l docum ents r e l a t i n g

t o t h e s t r u c t u r e o f t h e S e c r e t a r i a t ......................... APPENDIX B:

139

The f u n c t i o n s o f t h e d e p a r t m e n t s o f t h e

S e c r e t a r i a t .....................................................................................

150

APPENDIX C:

The d e t a i l e d s t r u c t u r e o f t h e S e c r e t a r i a t

160

APPENDIX D:

E stab lish e d p o sts in the S e c re ta r ia t.

171

.

.

LIST OF FIGURES FIGURE 1.

PAGE

O r g a n iz a tio n o f the S e c r e t a r i a t o f th e League of R a t i o n s ( 1 9 3 8 ) ..........................................................................

2.

. . . . . . . . . .

A m erican P r o p o s a l f o r

34

th e O rg a n iz a tio n of the

S ta f f S erv ices of th e S e c r e t a r i a t 5.

. . . . . . .

D ep artm en t of S e c u r i t y C o u n c il A f f a i r s and a c tu a l o r i g i n a l o r g a n iz a tio n )

7.

D e p a r t m e n t o f E conom ic A f f a i r s as o r ig in a lly o rg an iz ed ).

8.

D epartm ent of S o c ia l A f f a i r s o r i g in a ll y organized)

9.

49

O rg a n iz a tio n of the S e c r e t a r i a t a s o u t li n e d by th e P r e p a r a t o r y C o m m i s s i o n ............................................................

6.

28

M in o rity P ro p o s a l f o r th e O r g a n iz a tio n of t h e U n i t e d N a t i o n s S e c r e t a r i a t .......................................

4.

25

M a jo rity P ro po sal f o r th e O rg a n iz a tio n of the U n ite d N ations S e c r e t a r i a t .

3.

•

64

(Suggested

. . . . . . .

69

(As p r o p o s e d a n d

. . . .

..............................

72

(As p r o p o s e d a n d a s

... .......................................................

74

D epartm en t o f T r u s t e e s h i p an d I n f o r m a t i o n from N on-S elf-G overning T e r r i t o r i e s .

. ..............................

10.

D e p a r t m e n t o f P u b l i c I n f o r m a t i o n ........................

11.

L e g a l D e p a r t m e n t . .................................

12.

C onference and G eneral S e rv ic e s

13.

A d m i n i s t r a t i v e and F i n a n c i a l S e r v i c e s

14.

E x ecu tiv e O ffic e of the S e c re ta ry -G e n e ra l (Ja n u ary 1949 a n d Summer 1 9 4 8 )

. . .

77 79 82

....................................... . . . . . .

. . . . . . . . . . . . .

84 86

93

V

FIGURE

PAGE

15.

D epartm ent

o f S e c u r i t y C ouncil A f f a i r s

( J u l y 1947)

*97

16.

D epartm ent

o f S e c u r i t y C ouncil A f f a i r s

(Jan.

98

17.

D epartm ent

o f E c o n o m ic A f f a i r s

J a n u a r y 194 9 ) 18.

19.

( J u l y 1947 a n d

................................................................................

D epartm ent o f S o c ia l A f f a i r s J a n u a r y 1949 )

1949)

(M a r c h 1946 a n d

...........................................................................

20.

D epartm ent

o f P u b l i c I n f o r m a t i o n (M a rch 1 9 4 8 )

21.

D epartm ent

o f P u b l i c I n f o r m a t i o n ( J a n u a r y 1949)

22.

L e g a l D e p a r t m e n t ( J a n u a r y 19 49)

23.

D epartm ent o f C onference an d G eneral S e rv ic e s

• .

105 107

.

108

..........................................

110

( J u l y 1947 a n d J a n u a r y 1 9 4 9 ) .............................................

112

D epartm ent o f A d m in is tr a tiv e and F in a n c i a l S e rv ic e s ( M a r c h 1 9 4 8 ) .....................................................................................

25.

103

D epartm ent of T r u s t e e s h i p a n d I n f o r m a t io n from R o n - S e l f - G o v e r n i n g T e r r i t o r i e s ........................................

24.

100

116

D epartm ent of A d m i n is tr a t iv e and F i n a n c i a l S e r v ic e s ( J a n u a r y 1 9 4 9 ) ................................................................................

117

CHAPTER I PURPOSE AND AREA OP RESEARCH I t i s im p o ssib le f o r hum anity to advance i t s knowledge o f o r g a n i z a t i o n u n l e s s th e f a c t o r o f s t r u c t u r e i s i s o l a t e d from o t h e r c o n s i d e r a t i o n s , 1 h o w e v e r a r t i f i c i a l s u c h a n i s o l a t i o n may a p p e a r . As i n d i c a t e d b y t h e t i t l e , is

th e purpose o f t h i s th e s is

t o exam ine t h e s t r u c t u r a l d e v e lo p m e n t o f t h e a d m i n i s t r a ­

t i v e a rm o f t h e U n i t e d N a t i o n s . b r i e f look a t

W ith t h e e x c e p t i o n o f a

th e a d m i n i s t r a t i v e fram ework o f th e League o f

N atio n s, t h i s paper w ill be c o n fin ed to a h i s t o r i c a l tr a c in g o f t h e developm ent of th e s t r u c t u r e

of the U n ited N ations

S e c r e t a r i a t f r o m t h e D u m b a r t o n Oaks P r o p o s a l s s e t f o r t h i n O ctober 1944, to t h e a d o p tio n o f a r e l a t i v e l y perm anent o r ­ g a n iz a t i o n a l s t r u c t u r e a s o u t li n e d i n the a d m i n i s t r a tiv e m anuals.

The f i r s t o f w h i c h was c o m p l e t e d i n t h e f a l l o f

1948.2 Any a t t e m p t t o I s o l a t e s t r u c t u r e f r o m t h e b r o a d e r p r o b l e m s o f o r g a n i z a t i o n a n d t h o s e o f m a n a g em en t a n d a d m i n ­ i s t r a t i o n i s b o u n d t o i n c u r some c r i t i c i s m .

If stru ctu re

*** L y n d a l l U r w i c k , "The F u n c t i o n o f A d m i n i s t r a t i o n , " P a p e r s o n t h e S c i e n c e o f A d m i n i s t r a t i o n (New Y o r k : Columbia U n i v e r s i t y , 1937), p . 122. 2 The m a n u a l s w e r e a u t h o r i z e d b y SGB/2, 8 M a r c h 1 9 4 6 . The - f i r s t o f f o u r m a n u a l s was c o m p l e t e d i n t h e f a l l o f 1 9 4 8 . C om pletion o f th e re m a in in g t h r e e i s e x p e c te d by 1950. They e x i s t i n d r a f t form a t th e p r e s e n t t i m e .

2 i s defined

narro w ly ,

the c r i t i c i s m w ill p o in t out t h a t th e

s u b j e c t h a s l o s t much o f i t s

im portance in r e l a t i o n to th e

general a d m in istrativ e p ic tu re . term i s d e f i n e d to i n c l u d e a l l

If,

on t h e o t h e r h a n d ,

the

th o s e a d m i n i s t r a t i v e problem s

which a r e r e l a t e d to s t r u c t u r e ,

the s u b j e c t can be c r i t i ­

c i s e d , q u i t e p r o p e r l y , a s one o f u n m an ag eab le p r o p o r t i o n s fo r a sin g le th e s is .

T h is exam ination o f s t r u c t u r e w i l l

a tte m p t to a v o id th e

l a t t e r c r i t i c i s m and to j u s t i f y i t s e l f

w ith r e s p e c t to th e fo rm er. A study o f s t r u c t u r e , if its h erein ,

h o w e v e r , c a n be m e a n i n g f u l o n l y

lim itatio n s are realized .

S tr u c tu r e . as considered

w i l l r e f e r s im p ly t o the a c t u a l

wor k o f t h e S e c r e t a r i a t .

o r g a n i z a t i o n a l fram e­

T h e r e w i l l be l i t t l e

o r no a t t e m p t

to c o n s i d e r b u d g e ta r y , p e r s o n n e l , and p o l i t i c a l problem s b e h in d th e s t r u c t u r a l developm ent. course,

These f a c t o r s a r e ,

of

v e ry im p o r ta n t a n d , b e f o r e any f i n a l v a lu e judgm ents

c a n b e m ad e ,

th e y must be c o n s i d e r e d .

B ut, b e fo re s t r u c t u r e

c a n be r e l a t e d t o t h e s e f a c t o r s , t h e - a c t u a l s t r u c t u r a l developm ent o f the and t h e r e i n l i e s

S e c r e t a r i a t m u s t be known a n d u n d e r s t o o d , '

the purpose of th is t h e s i s .

Even w i t h i n t h e a r e a o f s t r u c t u r e , t h e r e i s an im por­ t a n t l i m i t a t i o n to t h i s

research to p ic.

A com plete c o n s id e r ­

a t i o n o f th e s t r u c t u r a l developm ent of th e U n i t e d N a tio n s S e c r e t a r i a t w o u l d n e c e s s a r i l y i n c l u d e an e x a m i n a t i o n o f t h e s t r u c t u r a l r e l a t i o n s h i p s betw een th e S e c r e t a r i a t and the

o t h e r organs o f th e U n ite d N a tio n s , betw een th e S e c r e t a r i a t and n a t i o n a l g o v ern m en ts, and th e r e l a t i o n s h i p betw een th e S e c r e t a r i a t and i n t e r n a t i o n a l and r e g i o n a l o r g a n i z a t i o n s o u ts id e the U n ite d N a tio n s, as w e ll as the i n t e r n a l s t r u c ­ t u r e o f the S e c r e t a r i a t .

The s c o p e o f t h i s p a p e r , h o w e v e r ,

w i l l be p r i m a r i l y c o n ce rn e d w ith th e s t r u c t u r a l developm ent of th e a d m in is tr a tiv e h ie r a r c h y d i r e c t l y under the S e c re ta r y G eneral.

There

w ill be, of course,

some n e c e s s a r y r e f e r e n c e

to th ese broader o rg a n iz a tio n a l asp ects* The a c t u a l e x a m i n a t i o n o f t h e f r a m e w o r k o f t h e S e c ­ r e t a r i a t w i l l c e n t e r around

five issu e s:

1.

The b a s i s o f o r g a n i z a t i o n ,

2.

The p r i n c i p l e o f h i e r a r c h y ,

3.

The s t a f f c o n c e p t ,

4.

C o o rd in atio n , and

5.

Span o f

co n tro l.

D i s c u s s i o n o v e r t h e b a s i s o f o r g a n i z a t i o n was o n e o f the f i r s t

s t r u c t u r a l q u e s tio n s to be r a i s e d

w ith the s e ttin g issue f i r s t

in connection

up o f t h e U n i t e d N a t i o n s S e c r e t a r i a t .

The

came i n t o p r o m i n e n c e i n t h e form o f a d e b a t e

betw een th o s e f a v o r i n g o r g a n i z a t i o n o f t h e S e c r e t a r i a t a lo n g " o r g a n i c " l i n e s a n d t h o s e who s u p p o r t e d a " f u n c t i o n a l " b a s i s 3 of o rg an izatio n . The f u n c t i o n a l a p p r o a c h , a s u s e d h e r e , 3 These te rm s were i n g e n e r a l u s e by th e P r e p a r a t o r y C om m ission.- I n f r a , page 29, p a ra g ra p h 23. See a l s o D o n a l d C. S t o n e ! s " O r g a n i z i n g t h e U n i t e d N a t i o n s , " P u b l i c A d m i n i s ­ t r a t i o n R eview . S p r in g , 1946, p p . 1 2 1 -1 2 2 ..

4 I s one w h i c h f a v o r s a f o r m o f o r g a n i z a t i o n w h i c h w o u l d h a v e each departm ent of the S e c r e t a r i a t se rv e , cap acity , a l l

in i t s

th-e o r g a n s o f t h e U n i t e d N a t i o n s .

a p p r o a c h f a v o r s a s e c r e t a r i a t so o r g a n i z e d t h a t w i t h i n t h e U n i t e d N a t io n s would have i t s reta ria t.

p articu lar

Under t h i s

each body

own u n i f i e d s e c ­

form o f o r g a n i z a t i o n ,

C o u n c il, th e G eneral A ssem bly,

The o r g a n i c

the S e c u r i ty

th e T r u s te e s h ip C o u n c il, and

t h e S o c i a l a n d E c o n o m ic C o u n c i l w o u l d e a c h h a v e a n a d m i n ­ i s t r a t i v e arm w o r k i n g a s a n i n t e g r a l p a r t o f t h a t b o d y . U n d e r t h e f u n c t i o n a l p l a n , a D e p a r t m e n t o f E c o n o m ic A f f a i r s , f o r ex am p le, w ould p r o v i d e s e r v i c e s o f an econom ic n a t u r e 4 f o r a l l t h e above m e n tio n e d b o d i e s . Under th e p r i n c i p l e of h ie ra rc h y the p o s i t i o n a l r e l a ­ t i o n s h i p o f the d i f f e r e n t t a r i a t w i l l be exam ined.

s t r u c t u r a l u n i t s w ith in the Secre­ P a r t i c u l a r i n t e r e s t w i l l be c e n t e r e d

around th e

l i n e s of a u th o r i ty and r e s p o n s i b i l i t y , 5 d e g r e e t o vfaich t h e s e two c o n c e p t s c o r r e s p o n d *

and th e

The c o n c e p t o f s t a f f a s o p p o s e d t o o p e r a t i n g d e p a r t ­ m ents i s e s p e c i a l l y i n t e r e s t i n g

in connection w ith the o r­

g a n i z a t i o n -of t h e S e c r e t a r i a t d u e t o t h e i n a b i l i t y of the n a tio n a l

o f m any

r e p r e s e n t a t i v e s , w o r k i n g a s m em bers o f t h e

4 I n f r a , pp. 28, 34. 5 I n g e n e r a l t h i s a r e a e m b r a c e s t h e f i r s t two o f D r . P f i f f n e r * s p r i n c i p l e s o f a good a d m i n i s t r a t i v e s t r u c t u r e l i s t e d o n p a g e 56 o f t h i s w o r k .

P r e p a r a t o r y Commission o f t h e U n i t e d N a t i o n s , t o r e a l i z e an e s s e n t i a l d i f f e r e n c e b e t w e e n t h e s e two t y p e s o f a d m i n i s t r a ­ t i v e units.**

To many p e r s o n s t h e t e r m '‘S e c r e t a r i a t ” d e n o t e d

th e perm anent " s t a f f ” of the U n ite d N a tio n s , i n the

S ecretariat,

istrativ e

c e r t a i n d e p a rtm e n ts o p e r a t e a s adm in­

arms t o t h e v a r i o u s o r g a n s o f th e U n i t e d N a t i o n s ,

w hile o th e r departm ents perform a u x i l i a r y sta ff,

However, w i t h ­

or general service fu n c tio n s.

these d is tin c t io n s ,

7

s ta ff, general

The e x i s t e n c e o f

a n d t h e demand f o r a s t r u c t u r a l r e c o g ­

n i t i o n o f t h e m , make t h e s t a f f c o n c e p t o f s p e c i a l i m p o r t a n c e to a d i s c u s s i o n o f th e developm ent o f th e S e c r e t a r i a t . . The p r o b l e m o f c o o r d i n a t i o n , e s p e c i a l l y on t h e l o w e r ad m in istrativ e le v e ls , i s

extrem ely im p o rta n t,

i f only by

v i r t u e o f th e conspicuous la c k of such c o o r d i n a ti o n i n the Q

League S e c r e t a r i a t .

The p r o b l e m , h o w e v e r , i s o n e w h i c h

d e p e n d s t o a g r e a t d e g r e e on s u c h f a c t o r s a s

" e s p r i t de corps

p h y s i c a l p r o x i m i t y , and o t h e r m a t t e r s w hich c a n n o t be t a k e n up w i t h i n t h e s c o p e o f t h i s p a p e r .

The e m p h a s i s h e r e i n

w i l l be on t h e a c t u a l m a c h in e r y f o r

c o o rd in a tio n w hich has

b e e n s e t up w i t h i n t h e S e c r e t a r i a t .

** D o n a l d C. S t o n e , " O r g a n i z i n g t h e U n i t e d N a t i o n s , ” P u b l i c A d m i n i s t r a t i o n R e v ie w , S p r i n g , 1946, p . 122. 7 I n f r a , pp.

50-51.

8 I n f r a , p p . 21-24.

6 Sp an o f c o n t r o l was n e v e r t h e s o u r c e o f much c o n t r o ­ v e r s y a t any p o i n t i n t h e o r g a n i z a t i o n o f the S e c r e t a r i a t , but i t

did p la y a q u ie t p a r t i n

the f o r m u la ti o n of p r o p o s a ls

concerning the o rg a n iz a tio n o f the S e c r e t a r i a t .

I t was

p a r t i c u l a r l y i m p o r t a n t i n a t t e m p t i n g t o work o u t a p l a n t o a d e q u a t e l y s e r v e t h e E co n o m ic a n d S o c i a l C o u n c i l . T h e s e f i v e i s s u e s do n o t r e p r e s e n t a l l ,

9

n o r th e only

f o r m u la tio n , o f th e a d m i n i s t r a t i v e i s s u e s # i i c h have con­ fro n te d the S e c r e t a r i a t , b u t ,

on t h e b a s i s o f t h i s

research,

t h e y do c o n t a i n t h e m o s t i m p o r t a n t s t r u c t u r a l q u e s t i o n s . I n a p a p e r e n t i t l e d The O r g a n i z a t i o n o f A d m i n i s t r a t i v e L e v e l , Rowland E g g e r s t a t e d ,

10

Peace a t th e

"The S e c r e t a r i a t

i s th e E x e c u tiv e D epartm ent o f th e U n ite d N a tio n s O rg a n iz a tio n * Upon w h a t i t

d o e s o r d o e s n o t do d e p e n d s , u l t i m a t e l y , t h e

outcome o f t h e i s s u e o f w ar a n d p e a c e . ”

11

D r . E g g e r made

t h i s s t a t e m e n t s h o r t l y a f t e r t h e San F r a n c i s c o C o n f e r e n c e . At t h a t t i m e , u n d e r s t a n d a b l e e n t h u s i a s m may h a v e h im t o o v e r - e v a l u a t e t h e r o l e

^ I n f r a > PP»

caused

o f the S e c r e t a r i a t i n th e

53-54

^ The i m p o r t a n c e o f t h e s e i s s u e s i s p a r t i c u l a r l y s t r e s s e d on t h e f o l l o w i n g p a g e s : 4 1 , 4 2 , 4 6 - 5 2 , 5 8 - 6 3 , and C hapter V I I I . S e e a l s o D. C. S t o n e , " O r g a n i z i n g t h e U n ite d N a tio n s ," P u b lic A d m in is tr a tio n R eview , S p rin g , 1946, p . 121. ^ R o w l a n d E g g e r , The O r g a n i z a t i o n o f P e a c e a t t h e A d m i n i s t r a t i v e L e v e l (New Y o r k : Commission t o S tu d y th e O rg a n iz atio n o f,P e a c e , 1945), p . 9.

b u ild in g of peace.

I t c e r t a i n l y se e m s a l i t t l e u n f a i r t o

blame t h e S e c r e t a r i a t f o r t h e p r e s e n t s t a t e o f w o r ld a f f a i r s . However, i n s p i t e o f t h e w e a k n e s s e s a n d i n a d e q u a c i e s o f th e U n ite d N atio n s O rg a n iz a tio n , i t

is

the

only i n s t i t u t i o n a l

a d m is s io n o f th e e x i s t e n c e of a code o f p o l i t i c a l m o r a l i t y h ig h e r than t h a t of the n a t i o n - s t a t e .

The S e c r e t a r i a t

is

not only the e x e c u tiv e - a d m in is tr a tiv e b ranch o f th a t i n ­ s titu tio n , but i t is

t h e o n l y b r a n c h whose members a r e

com m itted to s e r v e t h a t i n s t i t u t i o n w ith o u t p r im a r y r e g a r d fo r th e ir n atio n al in te r e s ts .

I t is

e s t i m a t e th e im p o rta n c e o f such a

d i f f i c u l t to ov er­

body.

N atio n al govern­

m ents a t b e s t a r e com m itted to a p o l i c y o f a c t i n g i n t h e best in te re sts

of t h e i r p e o p le .

scope i s

s m a l l , f o r t h e r e a r e p ro b le m s w hich t r a n s c e n d •

too

n a tio n s , and

the i n t e r e s t s

I n th e modem w orld such a

o f one n a t i o n

(or of a l l n a tio n s

a s s e p a r a t e u n i t s ) may be i n c o n f l i c t w i t h t h e of a l l n atio n s.

Only t h e S e c r e t a r i a t i s

t i o n o n a “ s u p e r - n a t i o n a l ,f l e v e l .

common g o o d

organized to func­

The o t h e r b o d i e s w i t h i n

t h e U n i t e d N a t i o n s O r g a n i z a t i o n a r e com p o s ed o f n a t i o n a l r e p r e s e n t a t i v e s who a r e c h a r g e d w i t h t h e t a s k

of p re s e n tin g

th e v ie w p o in t of t h e i r n a t i o n o r re g io n in the so lv in g o f i n t e r n a t i o n a l problem s.

The members o f t h e S e c r e t a r i a t ,

how ever, a r e p le d g e d t o p e rfo rm t h e i r d u t i e s “w ith o n ly t h e i n t e r e s t s of the U n ited N ations i n

m in d .

^ A p o r t i o n o f t h e o a t h t a k e n b y t h e m em bers o f t h e U . N. S e c r e t a r i a t , c i t e d i n t h e UN W e e k ly B u l l e t i n . V o l . I , No. 2 , November 4 , 1 9 4 6 , p . 1 1 .

8 U n fo rtu n ately , g reat.

I t s d u ties are

c a l l to a t t e n t i o n ,

th e powers o f t h e S e c r e t a r i a t a re n o t to r e c o r d ,

serve,

in v estig ate ,

and a d m i n i s t e r .

reco m m en d,

The a u t h o r i t y

which i t p o s s e s s e s i n t h e s o l u t i o n o f i n t e r n a t i o n a l p ro b le m s i s t h e a u t h o r i t y commanded b y t h e f a c t s a n d i d e a s w h i c h i t p r e s e n t s to the

r e p r e s e n ta t iv e s of n a tio n s .

The e f f e c t i v e ­

n e s s w i t h w h i c h t h e S e c r e t a r i a t can c a r r y on i t s

lim ited

t a s k s i s d e p e n d e n t upon th e s t r e n g t h and e f f i c i e n c y o f i t s i n t e r n a l o r g a n iz a tio n and upon th e w i l li n g n e s s o f n a t i o n a l r e p r e s e n ta tiv e s to a cc ep t i t s co n sid eratio n f a l l s

recom m endations.

The l a t t e r

o u t s i d e th e scope of t h i s p a p e r , but th e

form er in d ic a t e s the re a so n f o r t h i s

study.

That re a so n ,

s t a t e d s i m p l y , i s a d e s i r e to exam ine t h e e f f o r t o f t h e S e c r e t a r i a t to o r g a n iz e i t s e l f to o p e ra te most e f f e c t i v e l y , a n d , t h e r e b y , t o g a i n some i n d i c a t i o n o f t h e r o l e o f t h e S e c r e t a r i a t i n the f i g h t f o r p e a c e .

True,

stru ctu re

is

o n ly one f a c t o r i n t h e d ev elo p m en t o f an e f f e c t i v e a d m i n i s ­ t r a t i v e m achine, b u t i t i s c e r t a i n l y a fu n d am e n ta l one.

^

CHAPTER I I ORGANIZATION OF RESEARCH AND METHOD OF PROCEDURE I n o r g a n i z i n g t h e r e s e a r c h a n d f o r m u l a t i n g a m ethod o f p r e s e n t a tio n , th e s e l e c ti o n of a s u ita b le beginning proved to be r a t h e r d i f f i c u l t .

T e c h n ic a lly , the S e c r e t a r i a t of th e

U n i t e d N a tio n s began f u n c t i o n i n g w ith th e a p p o in tm e n t o f t h e S e c r e t a r y - G e n e r a l b y t h e G e n e r a l A s s e m b l y on F e b r u a r y 1 , 1 9 4 6 . To s e l e c t t h a t d a t e ,

h ow ever, would b e to o v e r l o o k th e v e r y

i m p o r t a n t work d o n e b y t h e P r e p a r a t o r y C o m m i s s i o n a n d i t s E x e c u ti v e Com m ittee.

The work o f t h e s e two

b o d i e s was o u t ­

l i n e d a n d c o l o r e d b y t h e w ork d o n e by t h e d e l e g a t e s a t t h e San F r a n c i s c o C o n f e r e n c e a n d t h e League o f N a t io n s .

e x p e r i e n c e s g a in e d from th e

A l t h o u g h t h e i d e a s p r e s e n t e d a t San

F r a n c is c o and th e developm ent o f th e League S e c r e t a r i a t can be t r a c e d t o t h e p r i n c i p l e s and p r a c t i c e s o f t h e v a r i o u s n a tio n al ad m in istrativ e re ta ria t

th at

system s, i t

i s w i t h th e League Sec­

th e s u b s ta n tiv e p o r tio n of t h i s

th e s is b eg in s.

The L e a g u e S e c r e t a r i a t was s e l e c t e d a s t h e b e g i n n i n g p o i n t b e c a u s e i t was t h e f i r s t

in te rn a tio n a l s e c r e ta r ia t of

i t s k in d and th e only r e a l p re c e d e n t f o r th e U n ite d N ations 1 S ecretariat* As s u c h i t s e r v e s a s a s t a n d a r d b y w h i c h t o compare t h e d e v e lo p m e n t o f t h e U n i t e d N a t i o n s S e c r e t a r i a t .

^ See p a g e s 1 3 - 1 4 .

10 The e x p e r i e n c e o f t h e L e a g u e i s r e f e r r e d t o

throughout t h i s

t h e s i s , and t h is e x p erien c e i s

im portant i n the

p articu larly

c o n c l u s i o n , C h a p te r V I I I , a s a m ethod o f g i v i n g r e l a t i v e v a lu e to th e developm ent o f the U n ite d N atio n s S e c r e t a r i a t . R e s e a r c h on t h e L e a g u e S e c r e t a r i a t c o n s i s t e d a l m o s t e n t i r e l y i n th e use o f secon dary s o u rc e s ,

the r e s u l t s of

which a r e p r e s e n t e d b r i e f l y i n C h a p te r I I I .

The g e n e r a l

n a tu r e of th e in fo rm a tio n needed, p lu s the e x is te n c e of a d e q u a t e s t u d i e s on t h e L e a g u e , make s u c h a t r e a t m e n t s u f ­ f i c i e n t fo r the purposes of th is paper.

The m o s t u s e f u l

s i n g l e w o r k f o r t h i s p o r t i o n o f t h e r e s e a r c h was Egon F . R a n s h o f e n - W e r t h e i m e r 1s The I n t e r n a t i o n a l S e c r e t a r i a t . The s e c o n d p o r t i o n o f t h i s d e als w ith the

2

t h e s i s , C h a p t e r s IV a n d V,

work o f t h e P r e p a r a t o r y C o m m i s s i o n a n d t h e

o t h e r p r e l i m i n a r i e s w hich p r o v i d e d a b a s i c fram ework f o r t h e o r g a n iz a tio n o f the U n ite d N ations S e c r e t a r i a t .

Both o r i g ­

i n a l a n d s e c o n d a r y s o u r c e s w ere employed i n g a t h e r i n g m a t e r ­ i a l for th is

sectio n .

Three docum ents, ho w ev er, were th e

prim ary sources of in fo rm a tio n :

The R e p o r t b y t h e E x e c u t i v e

C om mittee t o th e P r e p a r a t o r y Commission o f th e U n i t e d 3 N atio n s, Summary R e c o r d o f M e e t i n g s , C o m m i t te e 6 i Admin-

^ W a s h i n g t o n , D . C . , C a r n e g i e Endowment f o r I n t e r ­ n a t i o n a l P e a c e , 1 9 4 5 , 50 0 p p . ^ U n i t e d N a tio n s docum ent, P C /E X /ll3 /R e v . 1 , 1 9 4 5 , 144 p p .

12 Nov.

11 i s t r a t l v e a n d B u d g e t a r y » U n i t e d N a t l o n s P r e p a r a t o r y Commis4 5 sio n , and th e R e p o rt o f th e P r e p a r a t o r y Com mission, To­ g eth er,

t h e s e d o c u m e n ts , w hich were p r e p a r e d l a t e i n 1945,

g i v e a g o o d d e s c r i p t i o n o f t h e many d i f f e r i n g v i e w s c o n c e r n ­ ing th e o r g a n iz a tio n of the S e c r e t a r i a t .

In a d d i t i o n to

t h e s e a n d o t h e r d o c u m e n t s , a n u m b er o f c o m m e n t a r i e s s u c h a s D o n a l d C. S t o n e * s ’’O r g a n i z i n g t h e U n i t e d N a t i o n s ’1® s h e d a g r e a t d e a l o f l i g h t on t h e a d m i n i s t r a t i v e q u e s t i o n s t o b e c o n s id e re d i n th e fo rm a tio n of an i n t e r n a t i o n a l I n C h a p t e r s VI a n d V I I t h e a c t u a l

secretariat.

o r g a n iz a tio n of the

S e c r e t a r i a t and t h e e v o l u t i o n o f t h a t o r g a n i z a t i o n a r e exam ined.

M aterial fo r th is

s e c t i o n o f t h e t h e s i s was

d e r i v e d a lm o s t e n t i r e l y from o r i g i n a l s o u r c e s .

Most o f t h e

m a t e r i a l was o b t a i n e d e i t h e r f r o m i n t e r - o f f i c e m em or anda a n d d i r e c t i v e s o r from o f f i c i a l in terv iew s.

r e p o r t s , docum ents,

and p e r s o n a l

D uring th e c o u rse o f the p a p e r , r e f e r e n c e w i l l

b e made t o s p e c i f i c

in te r-o ffic e

com m unications.

The follo w *

i n g a r e among t h e m o re i m p o r t a n t s o u r c e s : A I

A dm in istrativ e I n s tr u c tio n s .

These d e a l w ith

a l l a d m i n i s t r a t iv e i n s t r u c t i o n s and p ro c e d u re s r e l a t i n g to m o re t h a n one d e p a r t m e n t o f t h e o r g a n i z a t i o n .

^ C h u r c h H o u s e , W e s t m i n s t e r , L o n d o n , 1 9 4 5 , 56 p p . ® P C / 2 0 , 23 D e c e m b e r 1 9 4 5 , 151 p p . 6 D o n a l d C. S t o n e , ’’O r g a n i z i n g t h e U n i t e d N a t i o n s , ” P u b l i c Adm ini s t r a t i on R e v i e w . S p r i n g , 1 9 4 6 , p p . 1 1 5 - 1 2 9 . _

12 IC — - The I n f o r m a t i o n C i r c u l a r s c o n t a i n i s o l a t e d announcem ents • SGB

The S e c r e t a r y - G e n e r a l 1s B u l l e t i n s d e a l w i t h

c o n s id e r a tio n s of g e n e r a l p o l i c y o r c o n ta in d i r e c t i v e s r e l a t i n g t o more t h a n one d e p a r t m e n t o f t h e O r g a n i z a t i o n . As m i g h t w e l l b e e x p e c t e d ,

7

the in fo rm a tio n r e l a t i v e

t o s t r u c t u r e was m ore d i f f i c u l t t o o b t a i n a s one p r o g r e s s e d down t h e h i e r a r c h y .

Any c h a n g e i n t h e d e p a r t m e n t o r b u r e a u

l e v e l was g e n e r a l l y r e p o r t e d i n t h e S e c r e t a r y - G e n e r a l 1s yearly r e p o r t. any change.

The r e p o r t u s u a l l y d i s c u s s e d t h e r e a s o n s f o r

S t r u c t u r a l c h a n g e s on t h e l o w e r l e v e l s , i n some

c a s e s , had t o be d e t e c t e d by a c o m p a r a t i v e s tu d y o f th e v a r i o u s i s s u e s o f t h e U. N. t e l e p h o n e d i r e c t o r y .

Having

d is c o v e r e d the change, t h e r e a s o n s f o r th e change could be o b t a i n e d by d i r e c t i n q u i r y . In th is

connection i t

s h o u ld be m e n tio n e d t h a t the

d i r e c t a s s i s t a n c e g i v e n b y t h e m em bers o f t h e S e c r e t a r i a t was i n v a l u a b l e .

A lth o u g h t h e r e i s a v a s t amount o f p r i n t e d

a n d m im eographed m a t e r i a l c o n c e r n i n g t h e o r g a n i z a t i o n o f th e S e c r e t a r i a t , t h e m o s t f r u i t f u l m e t h o d s o f r e s e a r c h w ere p e r s o n a l i n t e r v i e w s and c o r r e s p o n d e n c e .

^ U n ite d N ations,

S ecretariat,

SGB/2, 8 March 1 9 4 6 .

CHAPTER I I I THE LEAGUE EXPERIMENT The i n t e r n a l a d m i n i s t r a t i v e o r g a n i z a t i o n o f t h e S e c r e t a r i a t o f th e League of N a tio n s , w hich v i o l a t e s a l l the r u le s of a d m in is tr a tiv e o rg a n iz a tio n and, m o re i m p o r t a n t l y , m o s t o f t h e t e n e t s o f common s e n s e , i s n o t v e ry i n s t r u c t i v e w ith resp ec t-jto th e p ro b ab le o r g a n i z a t i o n o f t h e UNO S e c r e t a r i a t . In s p ite

o f th e l i m i t e d u s e f u ln e s s of the L eaguef s

experience in i n t e r n a t i o n a l a d m in is tra tiv e o rg a n iz a tio n , t h e League S e c r e t a r i a t i s v i r t u a l l y t h e o n ly i n t e r n a t i o n a l a g en c y w hich o c c u p ie d a p o s i t i o n s i m i l a r to t h e p r e s e n t S ecretariat. l e s s o n s to

U ndoubtedly th e r e a re v a lu a b le a d m i n i s t r a t i v e be l e a r n e d fro m th e I n t e r n a t i o n a l L a b o r Organ­

i z a t i o n , t h e I n t e r n a t i o n a l Red C r o s s , t h e I n t e r n a t i o n a l P o s t a l U nion, and o t h e r s i m i l a r b o d i e s .

2

These o rg a n iz a tio n s

h o w ev er, o p e r a t e i n a r e l a t i v e l y n a rro w s p h e r e and th e d u t i e s o f t h e i r r e l a t i v e l y sm all a d m i n i s t r a t iv e s t a f f s , fore,

there

do n o t c o v e r t h e w i d e r a n g e o f t a s k s w i t h w h i c h t h e

U n i t e d N a tio n s S e c r e t a r i a t must d e a l .

As t h e f u n c t i o n s

o f t h e a d m i n i s t r a t i v e s t a f f s o f t h e I . L . O . a n d t h e Red

^ R o w l a n d E g g e r , The O r g a n i z a t i o n o f A d m i n i s t r a t i v e L e v e l (New Y o r k : Commission O r g a n i z a t i o n o f P e a c e , 1 9 4 5 ) , p . 12. 2 For a d i s c u s s i o n o f e a r l i e r b o d ie s Experim ents in I n t e r n a t i o n a l A d m in is tra tio n H a r p e r a n d B r o t h e r s , 1 9 1 9 ) , 20 1 p p .

Peace a t the to study th e see F r a n c is Sayre (New Y o r k : ^

Cross a re l e s s

th an th o se of the p r e s e n t S e c r e t a r i a t ,

the

s t r u c t u r a l problem s, p a r t i c u l a r l y th o se r e l a t i n g to co o rd in a­ tio n of a c t i v i t i e s ,

are e it h e r le s s in volved or n o n -e x is te n t.

The L e a g u e S e c r e t a r i a t handicaps.

s t a r t e d o u t u n d e r two s e v e r e

I n t h e f i r s t p l a c e t h e r e was no r e a l p r e c e d e n t .

3

S e c o n d l y , t h e o r g a n i z a t i o n was l a u n c h e d w i t h t h e t y p i c a l l y B r i ti s h a v e rs io n to c h a r ts and b lu e p r in ts ,

/ h i e f e was no

a t t e m p t t o s e t up i n a d v a n c e a g e n e r a l o r g a n i z a t i o n a l s t r u c -

^

t u r e a s wa s done b y t h e U n i t e d N a t i o n s P r e p a r a t o r y C o m m i s s i o n . ^ \ i

The p r e v a i l i n g t h e o r y was t o l e t t h e S e c r e t a r i a t needs a ro se and,

lik e l i t t l e

g row a s

V

Topsy, i t grew and grew .

I n 1919 a memorandum was i s s u e d b y t h e S e c r e t a r y G e n e r a l s e t t i n g down t h e t e n t a t i v e o r g a n i z a t i o n o f t h e S e c re ta ria t in to

d e p a r t m e n t s and s e c t i o n s .

The s e c t i o n s

were a s f o l l o w s : 1. 2. 3. 4. 5. 6. 7. 8. 9.

A d m i n i s t r a t i v e Commissions and M i n o r i t y Q uestions E con o m ic a n d F i n a n c i a l In fo rm atio n I n t e r n a t i o n a l Bureau Labour # Legal M andates P o litic al R e g is tr a tio n of T re a tie s

5

E gon F . R a n s h o f e n - W e r t h e i m e r ! s , The I n t e r n a t i o n a l S e c r e t a r i a t . ( W a s h i n g t o n , D.C. : C a r n e g i e Endowment f o r I n t e r ­ n a tio n a l Peace, 1945), pp. 77-80. These p a g e s p o i n t o u t v e r y c l e a r l y t h e la c k o f p r e c e d e n t s i n fo rm in g the League S e c r e t a r i a t . ^ See C h a p t e r s IV & V.

15 10, S o c ia l Q u e stio n s 11* T r a n s i t a n d C o m m u n i c a t i o n s The i n t e r n a l a d m i n i s t r a t i v e d e p a r t m e n t s w e r e a s fo llo w s: 1# 2* 3* 4*

Finance L ib rary R e g i s t r a t i o n , A rchives and D i s t r i b u t i o n E s ta b l i s h m e n t (S h o rth a n d , T yping and D up licatin g ) 5 , I n t e r p r e t i n g and T r a n s l a t i n g 6* P r e c i s - w r i t i n g By 1 938 t h e w o r k o f t h e L e a g u e S e c r e t a r i a t was d iv id ed in to

three c a te g o rie s :

(1) G e n e ra l S e c ti o n s and

S ervices;

(2) S p e c ia liz e d S e r v ic e s ;

istrativ e

Services*

in to

( 3 ) I n t e r n a l Admin­

T hese t h r e e d i v i s i o n s were d i v i d e d

the follow ing s e c tio n s : G eneral S e c tio n s and S e rv ice s a . C en tral S ectio n d* L e g a l S e c t i o n b* P o l i t i c a l S e c t i o n e. Treasury c* I n f o r m a t i o n S e c t i o n f* L i b r a r y S p e c ia liz ed S ervices a* M i n o r i t i e s Q u e s t i o n s S ection b* F i n a n c i a l S e c t i o n a n d E c o n o m ic I n t e l l i g e n c e c* E co no m ic R e l a t i o n s Sect!on d* M a n d a t e s S e c t i o n e* C o m m u n i c a t i o n s a n d T ra n s it S ectio n

f* H e a l t h S e c t i o n g . Opium T r a f f i c S e c t i o n h* S o c i a l Q u e s t i o n s S ection i* D isarm am ents S e c tio n j * I n t e l l e c t u a l C oo peratio n S ection (In te r n a tio n a l O rg a n iz a tio n s S ectio n )

I n te r n a l A d m in istra tiv e S ervices a* O f f i c e P e r s o n n e l f* Documents S e r v i c e s b* I n t e r n a l S e r v i c e s g. P u b licatio n , P rin tin g c. S upplies S ervice and R ep ro d u ctio n of d. G eneral S ten o g rap h ic D o c u m e n ts S e r v i c e S ervices h* R e g i s t r y a n d I n d e x i n g e. D istrib u tio n of of .P u b lic a tio n s Service* D o c u m en ts

From t h e s t a n d p o i n t o f a d m i n i s t r a t i v e o r g a n i z a t i o n , t h e L e a g u e S e c r e t a r i a t o f 193 8 i s a r a t h e r c o n f u s e d p i e c e o f a d m i n i s t r a t iv e m achinery.

The r e l a t i o n s h i p s b e t w e e n

th e s e c tio n s and the S e c re ta ry -G e n e ra l v a rie d c o n sid e ra b ly even w i t h i n th e d i f f e r e n t d i v i s i o n s .

Most o f t h e s e c t i o n s

i n t h e G e n e r a l S e c t i o n s a n d S e r v i c e s w e re i n c l o s e c o n t a c t w ith th e S e c re ta ry -G e n e ra l.

The C e n t r a l S e c t i o n , i n a s e n s e ,

was a c t u a l l y p a r t o f t h e S e c r e t a r y - G e n e r a l 1s s t a f f .

Its

d u t i e s w ere t o c o o r d i n a t e t h e work o f t h e v a r i o u s s e c t i o n s and to a s s i s t th e S e c re ta ry -G e n e ra l i n h i s c a p a c i ty as Sec­ r e t a r y o f th e Assembly a n d C o u n c il.

The L e g a l a n d L i b r a r y

S e c tio n o f th e G en eral S e c ti o n s and S e r v i c e s , however, had a g r e a t d e a l o f autonom y. I n t h e S p e c i a l i z e d S e r v i c e s d i v i s i o n , t h e M andates a n d M i n o r i t i e s S e c t i o n s worked i n c l o s e c o n t a c t w i t h , and under the g e n eral d ir e c tio n o f, o ther serv ices in th is d iv is io n ,

the S e e re ta ry -G e n e ra l.

The

to v a ry in g d e g re e s , r e l i e d

upon th e S e c re ta ry -G e n e ra l o n ly f o r m ajor p o l i t i c a l d e c is io n s The I n t e r n a l A d m i n i s t r a t i v e S e r v i c e s h a d a l m o s t com­ p l e t e f u n c t i o n a l autonom y w i t h t h e e x c e p t i o n o f t h e P e r s o n n e l S e c ti o n w hich o p e r a t e d u n d e r th e g u id a n c e o f th e S e c r e t a r y -

For a d d itio n a l in fo rm a tio n concerning th e d u tie s o f the v a r i o u s s e c t i o n s se e , E. F. H anshofen-W ertheim er, o p . c i t . , p p . 100-108. 6 I b i d . . PP. 109-133.

G e n e ra l.7 [ A ll i n a l l ,

the g en eral o rg a n iz a tio n of the

" "x

L eague S e c r e t a r i a t seems to h a v e b e e n a r a t h e r u n h ap p y r e s u l t

'\ /

o f c o n f l i c t i n g a d m i n i s t r a t i v e te c h n iq u e s and unplan n ed grow th^/ th ro u g h o u t th e a lm o st tw e n ty y e a r s o f League h i s t o r y . / I t i s v i r t u a l l y im possible to la b e l th e o rg a n iz a tio n -

.

a l b a s i s o f th e League S e c r e t a r i a t . ( C e r t a i n l y t h e o rg an iz ^ -H T 1 . ! t i o n c a n n o t be d e s c r i b e d a s e i t h e r " o r g a n i c ” o r " f u n c t i o n a l " a s th o s e term s have b e e n u se d i n r e f e r e n c e to th e U n ite d N a t i o n s S e c r e t a r i a t . 0s

The s e c t i o n s o f t h e G e■n e r a l S e c t i o n s

a n d S e r v i c e s , i n g e n e r a l , s e r v e d th e League a s a w h o le . P o litic al

I

S e c ti o n , f o r exam ple,

served th e C o un cil,

ri

The!

*

the

A s s e m b l y , a n d t h e v a r i o u s c o m m i t t e e s i n t h e p o l i t i c a l work of th ese bodies.

*

S im ila rly , th e I n te r n a l A d m in istrativ e

S erv ices served the e n t i r e o rg a n iz a tio n .

The s p e c i f i c n a t u r e !

o f t h e work o f m o s t o f t h e S p e c i a l i z e d S e r v i c e s c a u s e d t h e m t o o p e r a t e i n c l o s e c o n n e c t i o n w i t h one o r two s p e c i f i c o r ­ g a n s o f t h e L e a g u e . j T he M a n d a t e s S e c t i o n , f o r e x a m p l e , s e r v e d t h e Perm enent M andates Commission.

The P e r m a n e n t

M andates- C o m m i s s i o n , h o w e v e r , d i d n o t h a v e i t s

own c o m p l e t e

a n d i n d e p e n d e n t a d m i n i s t r a t i v e a rm a s t h e o r g a n i c f o r m o f o r g a n i z a t i o n w o u ld f a v o r .

On a d m i n i s t r a t i v e m a t t e r s w h i c h

f e l l o u t s i d e t h e sc o p e o f t h e M andates S e c t i o n , t h e Perm anent

^ Ib id . , pp.

134-143.

® Supra, pp. 3-4, a ls o ,

I n f r a . p p . 34 a n d 47

18 M a n d a t e s C o m m i s s i o n w o u l d h a v e t o s e e k a s s i s t a n c e f r o m one of the o th e r a d m in is tr a tiv e a g e n c ie s w ith in th e S e c r e t a r i a t . A lthough n o t i n t h e tariat,

same s e n s e a s t h e p r e s e n t S e c r e ­

t h e L e a g u e S e c r e t a r i a t wa s o r g a n i z e d a l o n g f u n c t i o n ­

a l lin e s.

E a c h o f t h e s e c t i o n s a n d s e r v i c e s was c h a r g e d

w ith a s p e c if ic

task o r ta s k s.

perform ed f o r a l l

In g e n e r a l t h e s e t a s k s were r ' A i o r g a n s o f t h e L e a g u e , y i n c o m p a r i s o n with!

t h e p r e s e n t S e c r e t a r i a t t h e L e a g u e S e c r e t a r i a t was “o v e r f u n c t i o n a l iz e c U " / The t e n d e n c y i n t h e L e a g u e was f o r t h e S e c r e t a r i a t to expand h o r i z o n t a l l y .

As t h e f u n c t i o n s o f t h e

League S e c r e t a r i a t i n c r e a s e d , d e p a r t m e n t s were c r e a t e d t o o p e r a t e on a l e v e l w i t h t h e o t h e r d e p a r t m e n t s .

In the

p r e s e n t S e c r e t a r i a t , a d m i n i s t r a t i v e g r o w th i s more v e r t i c a l . E ig h t dep artm en ts have been s e t up,

each r e p r e s e n tin g a sep­

a ra te fu n c tio n o r type of a d m in is tra tiv e a c t i v i t y . tak e s p la c e w ith in th e se departm ents.

Gro w th

I n both S e c r e t a r i a t s

t h e r e h a s b e e n some o r g a n i z a t i o n a l o n g g e o g r a p h i c l i n e s . I n t h e L e a g u e t h i s was l i m i t e d t o s u c h s e c t i o n s a s t h e Man­ d ates and M in o rities S ectio n . P a r t i a l l y due t o t h e h o r i z o n t a l m ethod o f e x p a n s i o n / t h e c e n t r a l i z a t i o n o f c o n t r o l was n o t v e r y e f f e c t i v e - . —-—The o r g a n i z a t i o n d i d n o t form a w e l l - d e f i n e d h i e r a r c h y .

The

e x a c t c h a i n o f command was u s u a l l y u n c l e a r a n d t h e r e was no f o r m a l i z e d a t t e m p t t o make a u t h o r i t y a n d r e s p o n s i b i l i t y correspond.

T hese t h i n g s were p a r t i c u l a r l y t r u e o f t h e

19

f i r s t decade o f t h e League d u r i n g which th e S e c r e t a r i a t o p e ra te d i n accordance w ith a c c e p te d B r i t i s h a d m i n i s t r a t iv e p rac tic es.

In th e e a r l y 1930fs th e S e c r e t a r i a t began a

t r a n s i t i o n fro m t h e B r i t i s h t o t h e F re n ch m ethods o f p u b l i c a d m i n i s t r a t i o n a n d some o f t h e a b o v e d i f f i c u l t i e s w e r e im ­ proved. U nder th e B r i t i s h system , d e le g a tio n and d i s t r i b u t i o n o f r e s p o n s i b i l i t y was c a r r i e d o u t on a l a r g e s c a l e . a system te n d e d to c r e a t e i n i t i a t i v e istrativ e

Such

i n th e low er admin­

l e v e ls , and th e r e f o r e , high a d m in is tra tiv e o f f i c e r s

w e r e a b l e t o c o n c e n t r a t e on m a t t e r s o f p o l i c y .

The F r e n c h

s y s t e m was c h a r a c t e r i z e d b y g r e a t e r c e n t r a l i z a t i o n .

The

d u t i e s o f e a c h b r a n c h a n d l e v e l w ere c l e a r l y d e f i n e d a n d t h e work o f t h e v a r i o u s d e p a r t m e n t s was s p e c i f i c a l l y d e l e g a t e d Q from a b o v e . I n a t t e m p t i n g to e v a l u a t e th e s h i f t from th e B r i t i s h to th e F re n c h -L a tin 'sy s te m of a d m i n i s t r a t io n , R anshofenW ertheim er p o i n t s out t h a t , some f r i l l s

" o v e r l a p p i n g was a b o l i s h e d a n d

w e r e c u t down.

B u t h e se em s t o f e e l t h a t

t h e s e a d v a n t a g e s were o u tw e ig h e d b y th e f a c t t h a t such

Q

F o r a more d e t a i l e d d e s c r i p t i o n o f t h e F r e n c h a n d B r i t i s h system s o f a d m i n i s t r a t i o n a s th e y a f f e c t e d th e L e a g u e S e c r e t a r i a t s e e , E d w a r d J . P h e l a n , Ye s a n d A l b e r t Thomas ( L o n d o n : C re sse t P r e s s , 1936). 10 R a n s h o f e n - W e r t h e i m e r ,

ojd

.

c i t . , p . 154.

20 s t r i c t d e lin e a tio n o f d u tie s discouraged the s p i r i t of in itia tiv e .

He a l s o p o i n t s o u t t h a t t h e F r e n c h s y s t e m seem s

to in c o r p o r a te an " u n w illin g n e s s to d e le g a te a u t h o r i t y comm ensurate w i t h t h e a d m i n i s t r a t i v e f u n c t i o n an d r a n k s o f of f i c i a l s . In an alyzing t h i s

e v a lu a tio n of th e change, i t appears

t h a t Mr, R a n s h o f e n - W e r t h e i m e r h a s made h i s e v a l u a t i o n f r o m the

stan d p o in t of an id e a l

set of facto rs

r a t h e r t h a n on t h e

b a s i s o f t h e c o n d i t i o n s w h i c h w e r e , a n d a r e no w , i n h e r e n t i n th e s t r u c t u r e o f an i n t e r n a t i o n a l s e c r e t a r i a t . s y s te m , w hich he f a v o r s ,

The B r i t i s h

r e q u i r e s m o re t e a m w o r k a n d u n i t y o f

p u r p o s e and b a c k g ro u n d t h a n can b e a t t a i n e d I n an i n t e r n a t i o n ­ a l agency a t th is tim e. p o in ts out,

"It is

As Mr. R a n s h o f e n - W e r t h e i m e r , h i m s e l f ,

e a s i e r f o r a n A n g l o - S a x o n t o a d a p t h im ­

s e l f to th e c l e a r - c u t r u l e s o f a L a t in system th a n i t

is for

a Frenchman o r a S la v t o work u n d e r a n A n g lo -S a x o n s y s te m w h i c h l e a v e s so much t o t h e p e r s o n a l j u d g e m e n t ,

self-d is-

© ip lin e , and s e l f - r e s t r a i n t o f th e i n d iv id u a l o f f i c i a l . "

12

If a secretariat is

there

t o be i n t e r n a t i o n a l i n c o m p o s itio n ,

i s a n e ed f o r s h a r p ly d e fin e d r e s p o n s i b i l i t i e s u n t i l the o r g a n i z a t i o n can d e v e lo p th e th e B r i t i s h system .

^

y

" e s p r i t de c o r p s " n e c e s s a r y to

As d e s i r o u s a s t h e B r i t i s h s y s t e m may

P* 1 5 5 .

12 I b i d . , p . 1 5 4 .

be, i f

the fundam entals of t h a t

system a r e n o t p r e s e n t , an

org an izatio n al stru c tu re

c a n n o t be b u i l t a lo n g th o s e l i n e s .

A nother c r i t i c i s m

o f t h e ' F r e n c h sy s te m which a p p e a r s

a l i t t l e u n fa ir is

t h a t t h e F re n ch sy s te m em bodies a n u n ­

w i l l i n g n e s s t o make a u t h o r i t y c o m m e n s u r a t e w i t h r e s p o n s i b i l i t y . T h i s seem s t o b e a c r i t i c i s m w h i c h c a n be d i r e c t e d m ore c o r r e c t l y t o t h e p e r s o n s who o c c u p i e d h i g h a d m i n i s t r a t i v e • p o s t s r a t h e r th a n to th e form o f o r g a n i z a t i o n . ;

In any e n te r p r is e ,

and t h e L eague S e c r e t a r i a t w a s \ x

c e r t a i n l y no e x c e p t i o n , t h e r e a r e two b a s i c m e t h o d s o f achieving co o rd in atio n of a c t i v i t i e s .

The f i r s t i s

^

through/

o r g a n i z a t i o n . .- T h e s e c o n d i s by t h e dom inance o f an id e a *

/

13

Thesje two m e t h o d s , o f c o u r s e , a r e " n o t m u t u a l l y e x c l u s i v e . I t is

d i f f i c u l t to conceive o f an i n s t i t u t i o n o p e ra tin g

w i t h o u t e x t e n s i v e u t i l i z a t i o n o f each*

P e rh ap s the b e s t

e x a m p l e o f a n o r g a n i z a t i o n o p e r a t i n g a l m o s t e n t i r e l y on t h e l a t t e r q u ality is

th e League S e c r e t a r i a t .

C e rta in ly , in

lo oking a t th e o r g a n iz a tio n a l s t r u c t u r e of th e S e c r e t a r i a t o f t h e L e a g u e , th e m ost im m ediate c o n c l u s i o n i s t h a t i t must have a c h ie v e d i t s

good r e c o r d l a r g e l y t h r o u g h th e d i l i g e n c e

and s in g le - p u rp o s e a t t i t u d e

o f t h e men a n d women who f o r m e d

^ F o r a d i s c u s s i o n o f t h e s e two m e t h o d s o f a c h i e v i n g c o o r d i n a t i o n , s e e : L u t h e r G u l i c k , " N o t e s on t h e T h e o r y o f O r g a n i z a t i o n , " i n P a p e r s on t h e S c i e n c e o f A d m i n i s t r a t i o n ( E d i t e d b y L . - G u l i c k a n d L . U r w i c k ; New Y o r k : Columbia U n i v e r s i t y , .1937), p . 6 .

22 the S e c r e ta r ia t.

U n fo rtu n ately ,

th is paper is

lim ite d to

th e s t r u c t u r a l a s p e c ts o f th e problem o f c o o r d in a tio n .

In

t h i s r e s p e c t t h e League i s h e l p f u l o n ly t o t h e e x t e n t t h a t a d e f i n i t e l a c k i n th e m ac h in e ry o f c o o r d i n a t i o n can be p o i n t e d o u t an d compared w ith th e dev elo p m en t o f c o o r d i n a t i n g f a c i l i ­ t i e s in th e U n ited N ations S e c r e t a r i a t . In o rd er to f a c i l i t a t e S ecretariat, o fficers sectio n s.

c o o r d i n a t i o n i n t h e League

e a c h s e c t i o n was s u p p o s e d t o d e s i g n a t e c e r t a i n

to be r e s p o n s i b l e f o r l i a i s o n w i t h th e s p e c i a l i z e d "The L i b r a r y ,

f o r i n s t a n c e , h a d s t a f f members

s p e c i a l i z i n g i n econom ic, h e a l t h o r s o c i a l q u e s t i o n s , and i t was t o t h i s l i b r a r y o f f i c i a l t h a t i n q u i r i e s a n d r e q u e s t s f o r b i b l i o g r a p h i e s o r b o o k s c o m in g f r o m t h e s p e c i a l i z e d s e c t i o n s w e r e r e f e r r e d . ,r^

Such l i a i s o n w ork, how ever,

was n o t e v e n g e n e r a l l y c a r r i e d o u t .

The l i a i s o n m e t h o d

g e n e r a l l y u s e d was f o r e a c h s e c t i o n t o c o n s u l t i n d i v i d u a l l y w ith th e l i a i s o n o f f i c e r i n th e G eneral 'S e c tio n . The s e c t i o n s u n d e r t h e G e n e r a l S e c t i o n s a n d t h e S p e c ia liz e d S e rv ic e s developed i n t o s e p a r a te e n t i t i e s and e x h ib ited l i t t l e

exchange of p e rs o n n e l o r ,

some o f t h e S p e c i a l i z e d S e r v i c e s ,

in th e case of

of in f o r m a tio n .

o f s u c h d e v e l o p m e n t t h e r e was r e l a t i v e l y l i t t l e o f work.

In sp ite

o v er-lapp in g

A c c o r d i n g t o R a n s h o f e n - W e r t h e i m e r , t h i s was due t o

R anshof en-W ertheim er,

o jd

.

o i t . . p.

149.

23 t h e e x i s t e n c e o f a n " A c t i o n S e c t i o n 11 w h i c h a d v i s e d a s t o t h e c o m p e t e n t a u t h o r i t y on a l l m a t t e r s S ecretariat,

coming i n t o

the

t o t h e w o rk o f t h e R e g i s t r y , a n d t o t h e m u t u a l

u n d e r s t a n d i n g s and r e s p e c t betw een t h e v a r i o u s s e c t i o n s and s e r v i c e s r a t h e r t h a n to a s t r u c t u r a l o r g a n i z a t i o n w hich would p ro m o te good c o o r d i n a t i o n o f a c t i v i t i e s .

15

D u ring t h e League S e c r e t a r i a t ’ s p e r i o d o f g ro w th , a number o f c o m m itte e s were o r g a n i z e d f o r t h e p u r p o s e o f c o o r d i n a t i n g work.

The P u b l i c a t i o n s C o m m i t t e e a n d t h e

P u r c h a s i n g C o m m i t t e e a r e two e x a m p l e s .

However, t h e s e

com m ittees o p e r a t e d i n v e ry narrow f i e l d s .

A lthough a

number o f c o m m itte e s w ere s e t up t o c o n s i d e r t h e p ro b le m o f #o v e r - a l l c o o r d i n a t i o n , t h e r e c o m m e n d a t i o n s o f s u c h com­ m i t t e e s n e v e r r e s u l t e d i n t h e s e t t i n g up o f a n y m a c h in e r y desig n ed to a c h ie v e th e d e s ir e d c o o r d in a tio n . A n o t h e r f a i l i n g o f t h e L e a g u e , b u t one w h i c h h a s b e e n i m p r o v e d i n t ii e p r e s e n t S e c r e t a r i a t , was t h e f a i l u r e p r o p e r l y to u n d e rs ta n d the s t a f f f u n c tio n .

The C e n t r a l

S e c tio n w hich

had a s p e c i a l a d v i s o r y r e l a t i o n s h i p w ith th e S e c re ta r y - G e n ­ e r a l was c l a s s i f i e d a s one S ervices.

of th e G eneral S e c tio n s and

The P e r s o n n e l S e c t i o n , w h i c h was i n p a r t a n a d ­

v i s o r y ag en cy t o t h e S e c r e t a r y - G e n e r a l , was, from the s t a n d ­ p o i n t o f s t r u c t u r e , m e r e l y one o f t h e I n t e r n a l A d m i n i s t r a t i v e

15 I b i d . , p . 1 4 7 .

24 S ervices. later,

The U n i t e d N a t i o n s S e c r e t a r i a t , a s w i l l b e shown

h a s some s t r u c t u r a l r e c o g n i t i o n o f t h e d i f f e r e n c e

betw een s t a f f and o p e r a t i n g d e p a r tm e n ts . The a b o v e d e s c r i p t i o n o f t h e L e a g u e S e c r e t a r i a t h a s been v e r y b r i e f .

The p u r p o s e o f t h i s s e c t i o n , h o w e v e r , was

n o t to a tt e m p t to p r e s e n t a com plete p i c t u r e o f th e admin­ istrativ e

o rg a n iz a tio n of th e League, but m erely to p ro v id e

the n e c e ssa ry background f o r c e r t a i n

r e f e r e n c e s w hich w i l l be

made t o t h e L e a g u e S e c r e t a r i a t i n t h e f o l l o w i n g d i s c u s s i o n of the s tr u c tu r e

^

of th e U n ite d N ations

I n f r a , p p . 61-62.

S ecretariat.

25

ORGANIZATION OF THE SECRETARIAT - 1938 S e c r e ta r y - G eneral ( a n d .O f f ic e ) D ep uty S e c r e t a r y - G e n e r a l ( a n d O f f i c e ) U nder S e c r e t a r i e s - G eneral (a n d O ffic e s) I A t t a c h e d t o P r i n c i p a l O f f i c e r ( O f f i c i a l w i t h Rank o f D i r e c t o r a n d O f f i c e D e p u ty Sec.Gen*

Under Sec.G en. C h ie f of S e c tio n

L ia iso n w ith S ta te s C en tral Members S e c t i o n C orresp o n d e n ts A b ro a d

Legal A d v iser D ire c to r

L ib ra ria n C h ie f of S e c tio n ( V a c a n t)

T reasu rer

P o l l - In form O ffice Legal tic a l a tio n S e c t. T re a sy . L ib ra r y P erso n n el S e c t. S e c t. B ra n c h O ffices

D ire c to r

D ire c to r

D ire c to r

D ire c to r

(A c tin g D ire c to r)

(Minor­ itie s Q ues­ tio n i S e c t,

F in a n c ia l S e c t. and Econom ic In te lli­ gence S e rv ic e

Econom ic R e l a t i o n s M an dates S e c tio n S e c tio n

Communic a tio n s and T ran ­ s i t S e c t,

D ire c to r

In te rn a l S e rv ic e s

A c c o u n t­ in g B ra n c h

G eneral S te n o ­ g ra p h ic S e rv ic e s

GENERAL ORGANIZATION OF THE SECRETARIAT

D istrib ­ u t i o n of Documents

H e a lth S e c tio n

D ire c to r

i

[i

SPECIAL ORGANIZATIONS OF .THE LEAGUE

Document S e rv ic e s S e c r e t a r i a t o f C e n t r a l Opium B oard

P u b lic a tio n , P r in t- . in g and R ep ro d u ctio n ; o f D ocum ents S e r v i c e ;

S e c r e t a r i a t o f t h e A d m i n i s t r a t i v e B oard o f t h e S t a f f P e n s i o n s Fund

R e g i s tr y and In d e x in g of P u b lic a tio n s S erv. INTERNAL ADMINISTRATIVE SERVICES.OF THE SECRETARIAT

FIGURE 1

D ire c to r

D is­ Opium S o c ia l a rm a­ T r a f f i c Q u e s tio n s m ents, S e c tio n S e c tio n S e c tio n

E a ste rn B u re au o f th e I n t e r ­ na t i o n a l H e alth O rg an i z a t i o n (S in g a p o re )

S u p p lies S e rv ic e s

In te rn ­ a l Con­ tro l O ffice

D ire c to r

D ire c to r In te lle c ­ t u a l Coop­ era­ tio n

CHAPTER IV THE REPORT OF THE EXECUTIVE COMMITTEE TO THE PREPARATORY COMMISSION The r e a l t a s k o f s e t t i n g do mi a n o r g a n i z a t i o n a l fram ework f o r t h e S e c r e t a r i a t of th e U n i t e d N a tio n s d id no t a c tu a lly b egin u n t i l

t h e P r e p a r a t o r y Commission b e g a n i t s

*

w ork i n J u n e , 1945 a t Conference*

t h e c o n c l u s i o n o f t h e San F r a n c i s c o

Of c o u r s e , C h a p t e r X o f t h e D u m b a r t o n Oaks

P ro p o sals d e a lt w ith the S e c r e t a r i a t , b u t i t m ore t h a n e x p r e s s t h e n e e d f o r s u c h a body**** tr u e o f th e U n ited N ations C h a rte r.

did l i t t l e The same i s

A l t h o u g h many o f t h e

d e l e g a t e s a t t h e S a n F r a n c i s c o C o n f e r e n c e sh o w ed a k e e n a w are n ess o f t h e o r g a n i z a t i o n a l pro b lem s i n h e r e n t i n an in tern atio n al s e c re ta ria t,

t h e y seem ed q u i t e w i l l i n g t o l e a v e

t h e problem o f t h e s t r u c t u r e o f the S e c r e t a r i a t t o th e P r e p a r a t o r y Com mission.

A lthough a r t i c l e s

97-101 c o n c e rn

th e S e c r e t a r i a t , only the l a s t of th ese h a s any d i r e c t r e l a t i o n to th e q u e s tio n o f s t r u c t u r e .

2

S e c t i o n 2 o f A r t i c l e 101 s t a t e s t h a t , staffs

sh all

"A ppropriate

b e p e r m a n e n t l y a s s i g n e d t o t h e E co no m ic a n d

S o c ia l C o u n cil,

the T ru s te e s h ip C o u n cil, an d, a s re q u ire d ,

See a p p e n d i x , p . 1 4 0 . ^ See a p p e n d i x , p p . 1 4 1 - 1 4 2 .

27 to o th e r organs o f th e U n ite d N a t io n s .”

Prom t h e s t a n d p o i n t

o f s t r u c t u r e , th e words " p e rm a n e n tly a s s i g n e d " a r e o f g r e a t im portance.

" I f t h e y mean t h a t n e e d e d s e c r e t a r i a t s e r v i c e s

a r e t o b e p e r m a n e n t l y a v a i l a b l e , no i s s u e on t h e o t h e r h a n d , i t

is

can b e t a k e n .

If,

i n t e n d e d t o p l a c e t h e e m p h a s i s on

the se p ara ten e ss of the s t a f f s

of the d i f f e r e n t o rg an s, th e

r e s u l t s may b e q u i t e u n s a t i s f a c t o r y , a s t h e e x p e r i e n c e o f t h e L e a g u e se em s t o p o i n t t o t h e n e e d o f a n o p p o s i t e e m p h a s i s . W ith t h e e x c e p t i o n o f t h i s r e f e r e n c e to s t r u c t u r e i n th e C h a r t e r , t h e p r o b l e m o f o r g a n i z i n g t h e S e c r e t a r i a t was l e f t to t h e P r e p a r a t o r y Com m ission, th e S e c r e t a r y - G e n e r a l and t o experience. The f i r s t

f o r m a l a t t e m p t t o s e t down a g e n e r a l

org an izatio n al stru c tu re

f o r th e S e c r e t a r i a t i s found in

t h e R e p o r t by th e E x e c u t i v e Com mittee t o t h e P r e p a r a t o r y Commission o f t h e U n i t e d N a t i o n s .

T herefore,

in o rd e r to

p ro v id e a convenient p o in t o f d e p a r tu r e , the fo llo w in g p e r t i n e n t s e c tio n s of the r e p o r t a re quoted in t h e i r e n tirety : 22. The p r o p o s e d i n i t i a l a d m i n i s t r a t i v e organ­ i z a t i o n o f t h e S e c r e t a r i a t i s s e t o u t i n summary form i n t h e a t t a c h e d d iag ram . C onsiderable l a t i t u d e , how ever, must a lw ay s be l e f t t o t h e S e c r e t a r y G e n e r a l, and th e recom m endations a r e c o n s e q u e n tly

L . M. G o o d r i c h a n d E d v a r d Hambro, C h a r t e r o f t h e U n i t e d N a t i o n s : C om m entary a n d D o c u m en ts ( B o s t o n : W o rl d Peace F o u n d a tio n , 1 9 4 6 ), p . 275.

SECURITY COUNCIL

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GENERAL ASSEMBLY

TRUSTEESHIP COUNCIL

SECRETARY-GENERAL S e c r e t a r y - G e n e r a l1s O f f ic e

E conom ic Dept*

Finance D iv .

S o c ia l D ept*

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D ept* f o r In te r n a t.

frace & S.eft. P o liti- cal&Sec .

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