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Report of the Office of the Ombudsman for United Nations Funds and Programmes(UNDP/UNFPA/UNICEF/UNOPS/UN WOMEN)

1 January - 31 December 2012

Working together to find solutions

Office of the Ombudsman for United Nations Funds and Programmes

UNDP, UNFPA, UNICEF, UNOPS and UN WOMEN

380 Madison Avenue, 5th FloorNew York, NY 10017Tel: 212 963 1745Fax: 212 963 [email protected]/en/ombudsman

The Office of the Ombudsman is headed by the OmbudsmenMs Mame Diagne and Mr. Helmut Buss assisted by Ms. KentaroKanyomozi, Case Manager, Ms. Nancy Ross, AdministrativeAsso ciate, Ms. Sharon Gordon-Smith Administrative Assistantand on-call consultants: Mr. Kojo Gyasi, Mr. James Lee, Ms.Rosemary McCreery, Mr. Eskandar Rastegar, Ms. Judit Reveszand Ms. Linda Schieber.

Office of the Ombudsman

Top – left to right: Linda Schieber and Rosemary McCreery

Below – front row left to right: Eskandar Rastegar, Mame Diagne, Helmut Buss, Sharon Gordon-SmithBack row left to right: Kentaro Kanyomozi, Kojo Gyasi, Judit Revesz, Nancy Ross, James Lee

Working together to find solutions 1

Introduction .................................................................................................................................................2

I. Overview of the work of the Office from 1 January to 31 December 2012 ...................................5

A. Overview of cases ............................................................................................................................5

B. Field visits .........................................................................................................................................5

C. Outreach activities ...........................................................................................................................5

D. Respectful Workplace Advisors......................................................................................................6

II. Observations and recommendations concerning the major causes of conflict in the workplace reported to the Office of the Ombudsman for United Nations Funds and Programmes ..............................................................7

A. Conflict management system.........................................................................................................7

B. Career and talent management .....................................................................................................9

C. Restructuring and organizational change....................................................................................9

D. Job and career issues.....................................................................................................................12

E. Abrasive behaviour in the workplace..........................................................................................15

F. Mental and occupational health in the workplace ....................................................................19

III. Mediation in informal conflict resolution in the United Nations workplace ..............................21

IV. Looking ahead ....................................................................................................................................24

Annex 1. Recommendations..................................................................................................................26

Annex 2. Voices .....................................................................................................................................29

Annex 3. Issue definitions .....................................................................................................................30

Contents

The year 2012 marked the tenth anniversaryof offering ombudsman and mediationservices to the Funds and Programmes. Inthe first report, issued in 2012, it wasnoted that “The Ombudsperson mecha-

nism is an important means by which organizationscan learn from their own internal problems andimprove on the effectiveness and morale of theirstaff ”. Experience shows that this approach to infor-mal conflict resolution remains true today. TheOmbudsman continues to be an important tool forthe processing of grievances and the identification ofroot causes of conflicts in the Funds and Pro-grammes. Making this tool known and accessible toall, however, remains a challenge.Conflict is an integral part of human life and it is

therefore essential to acquire the skills to manage itin a constructive manner.This was the key messageof the Ombudsmen asthey strengthened out-reach efforts during 2012to address the highdemand from the Fundsand Programme work-force at all levels to learnmore about conflict-reso-

lution tools. The emphasis throughout the year wasthat instead of waiting until a conflict arises, staffand management should be aware of the ways inwhich the Office of the Ombudsman functions,how it can offer opportunities, empower employeesand build conflict management capacity. An equallyvital message is the importance of contacting theOffice as early as possible should a conflict arise.While the goal of conflict-preparedness is upper-most on the agenda of the Ombudsmen, they real-ize that many people shy away from it, thinking andhoping that they will not be involved in workplace

conflict and thereby not arming themselves withavailable information. The Ombudsmen will continue to pursue a vig-

orous course of multilevel action to convey the mis-sion of the Office, building on, for example,participation in organizational initiatives thatenhance conflict management competence andleadership quality in the workplace. During thereporting period, the Ombudsmen seized opportu-nities to train and coach employees in dispute-reso-lution techniques and to share information andinsight on leadership, accountability and abrasivebehaviour in the workplace.The neutral role of an ombudsman in managing

expectations is a key factor in conflict managementand one that is often misunderstood. An ombuds-man is not an advocate for any of the partiesrequesting services and cannot assume the role ofthose who work in the formal system of justice.Nevertheless, it is not unusual for a visitor to con-tact the Office of the Ombudsman with a request toinvestigate alleged misconduct or to obtain supportin drafting a request for management evaluation. Insuch cases, the Ombudsmen will refer the visitor tothe appropriate services. The Office seeks to addvalue to the functioning of the organization throughobjective, informal interventions not only in thecases that it receives but in all activities in which itis involved.The Office of the Ombudsman addressed the

informal resolution of conflict in 2012 against abackdrop of organizational change and restructur-ing, which frequently brings an element of uncer-tainty. The Funds and Programmes are adapting toeconomic factors and identifying ways of beingmore flexible without undermining efficiency. Thequestion often arises: How can trust and trans-parency be maintained while continuing to motivatethe workforce and boost morale in a workplace that

Introduction

2 Working together to find solutions

Conflict is an integral part of human life and it is

therefore essential to acquirethe skills to manage it in a

constructive manner.

is challenged by a reduction of funds and resources?With this in mind, staff and management at all lev-els have increasingly contacted the Office to addressconcerns about the implications of downsizing andrestructuring in the workplace. The Office isuniquely placed to hear concerns from the perspec-tives of senior management and other employeesabout maintaining fairness and due process underthe current severe financial constraints. Clearly, the Funds and Programmes workplace is

dynamic and complex, changing its profile andneeds to suit an ever-challenging environment. Theparticular role that the Office of the Ombudsmanplays in fostering trust in the workplace is crucialand is illustrated in the increasing number of invita-tions that the Office has received to make presenta-tions at inductions and at staff association andmanagement meetings. The benefit of having a safespace where a solution-focused discussion can beheld confidentially with a neutral person in aninformal manner cannot be underscored more sothan in times of change and uncertainty. TheOmbudsmen have helped to examine options formaintaining a positive manager-employee relation-ship, which is a key element for employee engage-ment at a time of organizational change and duringworkplace conflict. In this context, the various con-tractual modalities available to the Funds and Pro-grammes may themselves give rise to conflict. Forexample, tensions may mount when independentcontractors are hired to work alongside staff mem-bers under different conditions of service and enti-tlements or between national and international staffdue to different expectations and opportunitiesavailable for career advancement. A visit by theOmbudsmen to a Funds and Programmes Office attimes of rising tension and conflict often serves toprovide opportunities to listen, explore options andcoach staff at all levels.

The Office of the Ombudsman is encouraged bythe responses that have been received from theExecutive Offices of the Funds and Programmes toits recommendations. Itis equally encouragingthat the organizationshave made commend-able efforts in followingup on some of the sys-temic issues identifiedby the Office. In partic-ular, some Funds andProgrammes are strivingto communicate clearlyand more frequentlywith staff affected byorganizational change so as to build ownership andcooperation in the process and to let them knowwhat to expect. Nevertheless, this is an area wheremuch can be improved, particularly with regard tolong-serving staff members facing separation fromservice, who have spoken to the Ombudsmen offeeling abandoned, battered, ignored and disillu-sioned after a career of contributing to the goals ofthe United Nations. It is very important to bear inmind that the rationale for change is rarely in dis-pute by those affected by change; rather, it is theways in which change is implemented, its frequencyand logistics that cause tension and are a root causeof conflict in the workplace. The Office was alsoencouraged to see some efforts at strengtheningperformance management in the workplace throughthe revision of performance-management policiesand the training of experts in resolving performancedisputes. While managers are increasingly madeaware of how to manage those whose performancefalls short of expectations, much remains to be doneand the Office continues to receive requests in this regard.


How can trust andtransparency be maintainedwhile continuing to motivatethe workforce and boostmorale in a workplace that ischallenged by a reduction offunds and resources?

The Office of the Ombudsman maintainsdedicated services to its constituents and at thesame time participates equally in activities thatcontribute to the mandate of the integrated Officeof United Nations Ombudsman and MediationServices (UNOMS). These include commonoutreach tools such as a website, brochure andposters in addition to participating in case-debriefmeetings where system-wide conflict issues andpractices are identified with a view to sharing bestpractices and increasing efficiencies in addressingconflict in the United Nations workplace. While itis important to note that in the five years of itsexistence, the integrated UNOMS office has made

great strides in collaborating on a number ofinitiatives, there still remains a lot to be achieved.The Office continues to look forward to timely,constructive collaboration on common initiativessuch as the use of the common database and thepromulgation of terms of reference, operationalguidelines and standard practices.As in previous years, the current report addresses

familiar forms of conflict in the workplace. It alsohighlights the importance of having a systemic, col-laborative approach to dealing with conflict. Thereport discusses conflict management systems,career aspects in times of change and restructuring,and abrasive behaviour in the workplace.



Chapter I

A. Overview of cases

The Office of the Ombudsman for United NationsFunds and Programmes dealt with a total of 383cases in the period under review. Figure 1 shows abreakdown of the numbers of cases by organization.

B. Field visits

Field visits give an opportunity to the workforce ofthe Funds and Programmes to meet the Ombuds-men or their representatives face to face. During afield visit, the Ombudsmen or team members of the Office of the Ombudsman invite all those hold-ing contracts with the Funds and Programmes tointeractive meetings and workshop activities. TheOmbudsmen usually invite participants to reflect onconflict dynamics, including elements that causeconflict in the workplace and the options and toolsavailable to everyone to manage disputes and con-tribute to conflict resolution. A field visit is also anopportunity for the Ombudsmen to interact withmanagement as well as staff representatives. TheOmbudsmen visited a total of nine countries in fiveregions. Figure 2 shows a breakdown of cases thatthe Office received at headquarters and thosereceived from country offices.

C. Outreach activities

As part of its mandate to foster a harmonious, pro-ductive work environment and thereby contribute togreater organizational efficiency, the Office of theOmbudsman continued to engage with workplaceconflict management stakeholders such as represen-tatives of human resources departments, manage-ment and staff councils and staff associations. TheOmbudsmen were encouraged by the response andengagement that all stakeholders demonstrated at

Overview of the work of the Office from 1January to 31December 2012

Note: Other includes cases from other UN agencies.

HQ7720%

CO30480%

Figure 2. All cases, 2012, country offices vs. headquarters

UNDP19451%

UNFPA287%

UNICEF11530%

OTHER3

1%UNOPS

277%

UN WOMEN164%

Figure 1. Cases received from 1 January to 31 December 2012

various meetings conducted on conflict resolution inthe workplace. These meetings with global and localstaff associations, executive heads and senior man-agement of the Funds and Programmes provided anopportunity for constructive, transparent communi-cation on the challenges and possible avenues forgreater collaboration on issues identified as theunderlying causes of conflict in the workplace. Inaddition, the Office was invited to make contribu-tions to initiatives by key offices in the UnitedNations Internal Justice system. These initiativesinclude peer review reports by ethics offices as wellas periodic meetings with legal representatives andinvestigation offices.

The Office of the Ombudsman participated inorganizational training initiatives aimed at con-tributing to the strengthening of conflict manage-ment competence in new recruits as well asexperienced employees. Of particular note are thevarious induction programmes for country repre-sentatives and emerging talent initiatives that tookplace during the year. The Office welcomes suchopportunities not only to share practices on how toresolve workplace disputes but also to raise aware-ness of the value added in having a safe space to dis-cuss and address disagreements in a confidentialmanner and to build a cadre of “ambassadors” whocan promote good management practices through-out the organizations.

In January, the Office of the Ombudsman attend-ed the annual general meeting of the UnitedNations and Related International Organizations(UNARIO), a network of ombudsmen and media-tors in the United Nations and Bretton Woods sys-tem. The meetings provide a valuable opportunity forthe exchange of professional ideas on the tools avail-able to the ombudsmen and mediators to dischargetheir functions, share best practices and strengtheninteragency cooperation while maintaining eachorganization’s autonomy.

D. Respectful Workplace Advisors

The Office of the Ombudsman has piloted a range ofstrategies and mechanisms to enhance the conflictmanagement capacities within different organiza-tions. These include the concept of the RespectfulWorkplace Advisor (RWA), originally developed by

the World Bank and also implemented by UnitedNations organizations such as UNHCR and WFP.In piloting the RWA approach, the Office is critical-ly aware of the perceived risk that the involvement oftoo many individuals in conflict management canlead to a problem of conflicting jurisdictions. It hasbeen observed, for example, that RWAs competewith peer support counsellors while the staff repre-sentatives state that their role as conflict focal pointsand advisers has been weakened by other structures.In addition many managers claim that, with so manypersons involved in the process, they are deprived ofthe possibility of resolving conflict as part of theirown responsibilities. On the other hand, the experi-ence of organizations implementing the RWA con-cept shows that RWAs provide peer support inorienting colleagues in conflict, that the concept hassignificant outreach potential and that it is perceivedby the users as complementary to other existinggrievance mechanisms.

In an attempt to involve existing conflict manage-ment stakeholders and build broader ownership foran RWA network operating as part of a lager con-flict management system, the Office of theOmbudsman has supported regional efforts toorganize RWA training, involving not only futureRWAs but also human resources staff, staff repre-sentatives and peer support volunteers. The Officewill continue to pilot the RWA approach in select-ed regions that request it and are able to fund relat-ed training. Building on the ongoing pilotprogrammes, the Office will assess with the Fundsand Programmes their readiness to integrate theRWA approach into their conflict management sys-tems and to provide the necessary funding.

The pilot programmes also aim at illustrating thepotential of the RWA contribution to effective con-flict management and mitigation of costs involvedin badly managed conflict. Importantly, the assess-ment of RWA programmes in other organizationshas shown that RWA programmes need to beappropriately funded to ensure the quality of theRWAs and their intervention. It is only throughadequate resources that the RWA programme hasthe potential to be successful with a return oninvestment that can be demonstrated.



A.Conflict management systems

The issueA conflict management system that is effective takesinto account the processes, the people, the rules, thephysical environment, the control and grievancemechanisms as well as less visible attributes in theorganizational culture such as attitudes, beliefs andvalues. In this systemic approach, rather than address-ing conflict resolution on a case-by-case basis alone,conflict management is defined as a mechanism inwhich the different components are interrelated, inte-grated parts in an organizational environment. Thisenables all stakeholders to participate in the preven-tion, management and resolution of conflict in a com-prehensive, systemic manner. This approach alsosuggests that conflict management should build onexisting stakeholders and structures, rather than cre-ate new ones. Such a systemic approach aims at offer-ing people a choice of options by interconnecting allavailable options and functions. As a result, it has thepotential to drive the transformation of organiza-tional culture by helping to create a culture of conflictmanagement competency.It has become increasingly apparent and a signal

for action that a lack of engagement and investmentin conflict management systems has negative effectson organizations, for example: loss of efficiency,high direct and indirect costs of conflict, employeediscontent and high staff turnover and disregardingthe potential for change.Integrated conflict management systems are

meant to support an environment in which man-agers are expected to prevent, manage, contain andresolve conflict at the earliest time and lowest levelpossible. To achieve these objectives, such systems

have to provide support mechanisms, includingtraining, coaching, policies and procedures. To date, the Office of the Ombudsman has

achieved only partial success in its endeavour to linkup those officials in the various organizations who areconcerned with conflict management. None of thefive funds and programmes has a post at the seniormanagement level whose duties include a clearlydefined mandate for the coordination of a conflictmanagement system. As a consequence, the actorsinvolved in conflict management tend to work in par-allel rather than together. The Ombudsmen havefound that regular meetings enable everyone involvedto exchange experience of the problems encounteredand the steps that can be taken by management toremedy the situation. Coordination of this kind willbe effective, however, only if the necessary authorityis vested in these officials through their connectionwith the management, if their responsibilities areproperly defined, and if the direct benefit to an orga-nization’s business operation of a conflict manage-ment system of this kind is recognized. Only thencan it be fully integrated into the organizational strat-egy. The Office has the task of steering this processand throughout its meetings with the executive lead-ership and human resources divisions has receivedbroad support for the idea of more frequent and jointdialogue among conflict management stakeholders.By way of example, the model in figure 3 shows thecomplexity of coordinating a number of areas thatneed to be addressed to establish an effective conflictresolution system. The Ombudsmen believe that thismodel (developed by the European University Viadrina/PricewaterhouseCoopers in the study Con-flict Management: From the Elements to the Sys-tem, July, 2011) contains a number of elements on

Observations and recommendations concerningthe major causes of conflict in the workplacereported to the Office of the Ombudsman for United Nations Funds and Programmes

Chapter II

1 http://www.europa-uni.de/de/forschung/institut/insti-tut_ikm/publikationen/Studie_Conflict_Management_English_Summary.pdf


which the Funds and Programmes could build.While the Office has managed to initiate stakeholdermeetings in some of the funds and programmes cov-ered, such meetings are not yet held on as regular abasis as intended. It is important to note that none of the organi-

zations served by the Office of the Ombudsman hasintegrated the risks associated with a less-than-idealconflict management process into their risk-man-

agement system. This isan area, however, wherethe Ombudsmen of theUnited Nations Fundsand Programmes havemade some progress.Working in a contextwhere all the Funds andProgrammes depend onvoluntary contributions,which have declined con-siderably in the currenteconomic climate, organi-zations are increasingly

discovering the heavy costs that deficient or ineffec-tive conflict management have on their budgets,human resources and reputation. In some of these

organizations, the first steps are currently beingtaken to integrate the risks associated with inade-quate conflict management into their existingenterprise risk management systems. This is mostoften achieved by bringing together around thetable those with soft skills (e.g., representatives ofhuman resources departments) and those with hardskills (e.g., representatives of budget, finance, andthe Controller’s Office) in order to identify – and,ideally, to quantify – the negative effects of poorconflict management or, at the very least, to selectappropriate indicators that can be used to offsetthese negative effects. In this way, at least a start hasbeen made.

What can the organization do?For conflict management systems to be successful,the expressed commitment from senior manage-ment is essential at an early stage. In addition tomanagement support, a long-term strategy needsto be developed and the associated budgetapproved to undertake successfully the tasks andobjectives relating to conflict management. Thismust build on a corporate understanding of thefinancial, human and reputational risks of badlymanaged conflict.

None of the organizationsserved by the Office

of the Ombudsman hasintegrated the risks

associated with a less-than-ideal conflict management

process into their risk-management system.

Figure 3. The Viadrina component model of a conflict management system1

Internaland

ExternalCommunication

Con�ictContactPoints

Con�ictProcessor

Corporate Culture

Standardisation

ProdecuralStandards

SystematicChoice ofProcedure

Documentation,Controlling

Quality,Assurance

SteeringUnit


What can the Ombudsman do?The Office of the Ombudsman can facilitate thebuilding and strengthening of ongoing dialogueamong the stakeholders; share trends in the Fundsand Programmes that contribute to conflict poten-tial; assist in collecting data on the cost benefits ofinformal conflict resolution; and share experience ofsystems for conflict management and the manage-ment of the costs of conflict in other organizations.

B. Career and talent management

The issueThrough its career and talent management process,an organization ensures that staff skills and person-alities are aligned with the operational and pro-grammatic framework. This often means hiring theright person for the right job at the right time. TheOffice of the Ombudsman is encouraged by effortsthat are being made by the Funds and Programmesin this regard. While there have been many initia-tives to invite and nurture talent, a question that stillremains is how does an organization monitor andsustain talent management programmes especiallyin an environment where the Funds and Pro-grammes operate with less funding?It is not unusual for organizations to run the risk

in the current financial climate of treating their staffas expenses rather than assets. This results in a wasteof investment and resources. The Office of theOmbudsman sometimes receives visits from staffmembers who have served the organization for anumber of years with good performance records,only to discover that their post has been abolished.As a rule, a staff member in such a situation hasapplied to a number of positions and has failed tosecure an interview. It is understandable that yearsof experience do not automatically qualify a candi-date for an interview; the experience must, ofcourse, be relevant and suit the tasks envisaged.However, the organization has invested scarceresources over the years to ensure that employees areadequately trained, update their skills and are capa-ble of successfully carrying out challenging tasksrelevant to its mandate. In these circumstances, it issometimes difficult to understand why the sameorganization cannot identify opportunities thatcould make use of the experience and skills of a staffmember in this category. What is usually required inmost instances is dialogue on where the aggrieved

staff member stands with regard to workforce suc-cession planning. The absence of such a dialogue,which should involve not only human resources butalso – and primarily – managers, creates anxiety andtension in the workplace.

What can the organization do?In some organizations, the talent management pro-gramme is highly developed and care is taken toensure that the work-force is kept informedof developments suchas changing objectivesthat may have animpact on continuingemployability. Proac-tive guidance is avail-able and efforts aremade to assist themembers of the work-force to re-engineertheir skills. It is impor-tant for all organiza-tions to remember thatthe workforce is theirgreatest asset and totake into account thehuman dimension when embarking on new initia-tives; they should avoid giving even the impressionof regarding staff as a liability. In the experience ofthe Ombudsmen, when staff members are regardedas a liability, they can easily become one with result-ing conflict, even law suits. It is also important forthe organizations to remember that when staff feelbadly treated, the word spreads quickly and causesreputational damage.

What can the Ombudsman do?It is sometimes possible for the Ombudsmen to ini-tiate dialogue between the individual and theorganization with a view to discussing options in amore constructive manner. An individual’s self-con-fidence may have been so badly eroded by the sud-den change in professional standing and theaccompanying silence from the organization thatshe or he feels rejected and incapable of starting ajob search. It appears that the only assistance fromthe organization is to facilitate separation fromservice. Through open dialogue, other realisticoptions may surface.

It is important for allorganizations to rememberthat the workforce is theirgreatest asset and to takeinto account the humandimension when embarkingon new initiatives; theyshould avoid giving even the impression of regardingstaff as a liability.

C. Restructuring and organizational change

The issueThe Ombudsmen understand that change manage-ment and restructuring are essential elements forresponsible and accountable governance in theFunds and Programmes. In periods of financial con-straint, organizations must go back to the drawingboard to reconfigure themselves and make the mostefficient use of public money to fulfil their mission.This often means a reduction in staff, a reclassifica-tion of posts and, in some cases, a complete overhaulof the workplace structure, mandate and location. In addressing conflict in the Funds and Pro-

grammes workplace, particularly conflict emanatingfrom restructuring and change management situa-tions, the Office of the Ombudsman has observedfour elements that often cause tension: ad hoc deci-sion-making in the absence of an underlying long-term vision and strategy; ineffective communication;lack of transparency in budgetary decision-making;and ambiguity in the process of abolition of posts.The Office of the Ombudsman has received a

number of grievances that demonstrate that whenfaced with change, supervisors are under a lot ofpressure to take decisions on the continued employ-ment of some staff. How supervisors communicatetheir decisions is often as important as the decision

itself. Visitors have dis-closed to the Office thatthey had recently beensummoned by their super-visor to a meeting, some-times after working hours,to speak about their futurein the organization. The

conversation is often quite tense and may be pep-pered with phrases from the supervisor like, ‘you arenot a good fit for the team,’ ‘you might want tothink about early retirement,’ ‘your experience ismore suited elsewhere.’ However it is handled, thediscussion is frequently a startling revelation for thesupervisee, who has often never had a career conver-sation with the supervisor. Restructuring is a highly stressful situation for all

parties concerned. It is also a period of uncertaintyin which managers are often challenged to giveanswers that they may not be prepared to provide.

The Office of the Ombudsman has received griev-ances that demonstrate that, once again, instead ofmanagement entering into dialogue with staffaffected by change, there is a tendency to leave thecommunication of the change to a third party whois unfamiliar with the context within which thechange is occurring.Another factor that is often raised when restruc-

turing takes place is the issue of core-budget postsand those on extrabudgetary funds. The Office hasseen cases where a staff member who was initiallyhired on a core-budget post finds that when restruc-turing takes place, the post is suddenly indicated asbeing on an extrabudgetary account. The staffmember’s post is then abolished because there is alack of funding in the extrabudgetary account.Upon investigation, it is found that the decision toput the position on an extrabudgetary account wasmade earlier without the staff member’s knowledge. Lack of transparency regarding fund allocation,

especially in situations of organizational change andrestructuring, often means that there is no owner-ship and thus no accountability from those who areresponsible for implementing the change. TheOffice has received reports from visitors who, dur-ing an integration process, have been recruited intotheir positions without a supervisor or support staffowing to lack of funding. Nevertheless, they are stillexpected to deliver at full capacity. This presentsmultiple challenges not only to the individual staffmember but also to the organization.Sometimes, long-serving staff members are

informed through a telephone conversation or byemail that their posts are going to be abolished. Inother situations, some staff with over five years ofservice have been informed in writing that theircontracts will not be renewed because the post hasbeen abolished. When a staff member’s contract isnot renewed for this reason, especially in the case oflong-serving staff members, there is a perceptionthat the organization is trying to avoid paying right-fully accrued indemnities and dues arising from theabolished post, rather preferring to allow the con-tract to expire and thus avoid paying a terminationindemnity. It is important for organizations to setdown clearly in writing the processes for separation,minimizing the risk of confusion and misinterpreta-tion. Abolition of post often entails a separateadministrative process that is different from the


How supervisors com-municate their decisions is often as important as

the decision itself.

non-renewal of contract; it also entails rights andbrings accrued benefits for the long-serving staffmember. In situations such as restructuring, wheretrust levels are usually low and communicationoften sporadic at best, it is important that ambigui-ties are clarified at the outset to avoid confusion andtension in what is already a stressful process. It isequally important for the organization to honourand recognize the years of service of long-servingstaff on fixed-term, permanent or continuing con-tracts when their contracts come to an end. Figure4 depicts the percentage of cases within the lastthree years that address the issues of restructuring,relocation and change management.

What can the organization do?In devising long-term vision and strategy sup-ported by a robust communication strategy in arestructuring process, the Funds and Programmesshould not only communicate the rationale forchange but also the ways in which change is goingto be implemented. This should include optionsthat will be available to staff who are unsuccessfulin obtaining posts during the restructuring andnotifications to staff whose posts have changedowing to budgetary considerations.

The organizations should try to minimize the adhoc characteristics that seem to have become a partof change and restructuring efforts. Action toaddress this should be coordinated by headquartersor through the regional divisions and bureaux. It is important that the organizations develop an

inventory of available skills before entering into arestructuring exercise. Management should analysethe skills that the currentworkforce possesses beforedeciding to search exter-nally for other candidates.The objective is for anorganization to have con-tinuity and to offer oppor-tunities to internal candi-dates. This should ensurethat skills that have beenobtained by long- servingstaff remain and are takenadvantage of by theorganization instead offorcing staff to look else-where to use their skills. This kind of planningwould help to give an idea of where the skills defi-ciencies lie.


Figure 4. Restructuring, relocation and change management 2010-2012

0%

5%

10%

15%

Restructuring and relocation Change management

20%

25%

2010 2011 2012

11%

5%

21%

9%8%

2%

It is equally important for the organization tohonour and recognize theyears of service of long-serving staff on fixed-term,permanent or continuingcontracts when theircontracts come to an end.


What can the Ombudsman do?The Office of the Ombudsman has rendered assis-tance to managers who have been given the respon-sibility of implementing a restructuring process.

These managers are ofteneager to discuss what toexpect when it comes toanticipating conflict andtension when restructur-ing takes place. They payparticular attention tobest practices that havebeen used by other officesand rely on the Ombuds-men to act as a soundingboard to approaches andideas of how to handleparticular situations. The Ombudsmen have

also been able to assiststaff seeking optionswhen faced with animpending restructuring

process. Tensions often rise in periods of uncer-tainty and although the Office of the Ombudsmanis not a career counselling service, its services areaccessible to help all members of the work force of

the Funds and Programmes to explore the differentoptions that are available to those who are unsuc-cessful in obtaining a position after restructuring.

D. Job and career issues

The issueThe main reason that most people have sought the services of the Office of the Ombudsman over the past 10 years is to address conflict sur-rounding job and career issues. During the report-ing period, the Office handled issues pertaining tofeedback mechanisms, recruitment, induction pro-grammes, and inter-agency mobility and separa-tion procedures. A breakdown of the issues withinthe job- and career-related category is provided infigure 5.The Office of the Ombudsman continues to

receive visitors concerned by the lack of feedbackafter unsuccessfully applying for a position. Theexpectation of constructive feedback rises accordingto the years of experience and type of contract andis particularly heightened in situations where a posthas been abolished. When restructuring and re-profiling take place,

there are often challenges to the decision-makingprocess on grounds of fairness and transparency.

In devising long-term vision and strategy

supported by a robustcommunication strategy

in a restructuring process,the Funds and Programmesshould not only communi-

cate the rationale for change but also the

ways in which change isgoing to be implemented.

Figure 5. Job- and career-related issues

7%

3%

6%

6%4%

2%

2%

2%

1%

1%

1%

0% 5% 10% 15% 20% 25% 30%

Job application/selection andrecruitment processes

Career progression and opportunities

Non-renewal of contract

Post classification and description

Terms and conditions of contract

Involuntary transfer/change of assignment

Abolition of post

Career development

Termination

Rotation and duration of assignment

Other

Loan/secondment/transfer

Special leave

Retirement process

Resignation

15%26%

14%

9%


A decision not to recruit one person in favour ofanother may be perceived as favouritism or retalia-tion. However, it is equally important to rememberthat applying for any position carries with it the riskof rejection; a decision not to recruit a particularcandidate is not necessarily unfair. Nevertheless, theOffice of the Ombudsman is often contacted byemployees who believe that a recruitment decisionis arbitrary and biased. Once again, this raises ques-tions on the quality – or lack – of feedback, this timefollowing an interview. In addition, visitors report that it can be very dif-

ficult at times to get information from representa-tives of human resources. Either there is a perceivedunwillingness to share or the human resource con-tact person does not return telephone calls or replyto emails in a timely manner. Some visitors say thatthey feel they have been reduced to beggars becausethey have to keep trying and trying just to getacknowledgment – and the Ombudsman can onoccasion empathize with that feeling.And so what happens? The Office of the

Ombudsman may appear persistent, causing irrita-tion at a time when new approaches are being intro-duced and the human face at times seems to havedisappeared from interaction between staff andhuman resources services. Persistence should not bemistaken for advocacy. It is possible to be persistentand remain objective, as demonstrated in the dailywork carried out by ombudsmen throughout theUnited Nations system and beyond. A good recruitment decision can be sustained

only by an equally good induction programme: at alllevels of recruitment, the organization should investin sharing with new staff its values, ethics and cul-ture and equip them with the knowledge that willhelp them to integrate swiftly and effectively intotheir new work environment. Staff familiar not onlywith the deliverables of the position but with theorganizational culture and performance expecta-tions are likely to be more efficient. It is not unusualfor visitors to the Office of the Ombudsman todescribe workplace disputes that result from nothaving been informed, as part of the initial orienta-tion, of a particular practice or operational require-ment. While it is the responsibility of all membersof the workforce to educate themselves on thesematters, the organization likewise bears the respon-sibility of communicating clearly the basics of orga-

nizational functionality to all contract holders whenthey are recruited. Being able to work in more than one organiza-

tion of the United Nations system enables staff tobroaden their experience and skills. Furthermore,inter-agency mobility allows for an efficient use ofin-house talent. However, the Office of theOmbudsman has been contacted by staff memberswho are on an interagency mobility option such assecondment with concerns that on returning totheir parent organizations, any advancement or pro-motion in the receiving organization is not unrecog-nized. In other words, astaff member who hasgained a higher level andseveral steps on second-ment has to return to theparent organization on alateral move, often at alower step than she or hehad gained during thesecondment. Even worse,there is sometimes no postto which the staff membercan return and who, in this case, faces separationfrom service. None of these scenarios encouragestaff members to take advantage of mobility instru-ments available and ultimately become an impedi-ment to interagency mobility policy and strategy. In times of organizational change, the Office of

the Ombudsman has noticed that questions arisearound the placement of staff. Usually this entails theplacement of an individual in a particular positionwithout going through the usual recruitment process.Sometimes this process is called a desk-review, some-times strategic placement. In this scenario, the organ-ization does not follow the standard recruitmentprocess because there is an organizational need toplace the candidate immediately. When such circum-stances arise, it would be helpful to everybody if theperformance of the new recruit were to be activelymonitored not only to ensure that the objective forwhich the strategic placement is being achieved butalso to confirm that the candidate has adapted to theoffice and organizational culture and practices. Thisis especially important if the person has beenrecruited from outside the organization. Visitors have reported that when they are faced

with separation they do not know where to go to get

The Office of theOmbudsman continues toreceive visitors concerned by the lack of feedback after unsuccessfully applying for a position.

information at such a critical time in their lives.Despite writing or speaking to the human resources

services, most often repeat-edly, asking for informa-tion, they report that theyreceive no or inadequatefeedback. It is usually at thisjuncture that they approachthe Office of the Ombuds-man. They know that theOmbudsmen cannot find ajob for them and any prom-ise to do so is never made,of course. They want infor-mation and they wantaction. Being strung outweek after week, monthafter month, adds to theanxiety, increases stress andcauses some people to con-sider dire actions – allbecause they feel ignoredowing to the lack ofresponse. In this situation,

they sometimes conclude that the organization eitherdoes not care what happens to them or is planningsome action that will have irreversible, negative con-sequences – and such planned action must thereforenot be shared with the staff members to avoid anypre-emptive moves on their part.In these circumstances (e. g., abolition of post

timed to coincide with non-renewal of contract;rejection of candidature for a vacancy on unexplainedgrounds; removal from post in a harassing mannerand placement in a post for which the staff member,reaching retirement age, has no training; vague,unsubstantiated reasons for moving to separate along-serving senior staff member), open, constructivedialogue, once again, is the key missing element.

What can the organization do?The Administration should improve the qualityand frequency of its feedback, especially in situa-tions where, following the abolition of a post, staffare engaged in seeking other opportunities andhave requested feedback that could better positionthem in their job search. The Office of theOmbudsman is sensitive to the fact that an organ-ization will have to reduce staff either because of

financial constraints or because of changing priori-ties. In the experience of the Ombudsmen, this verydifficult process can be successfully implementedonly if there is a culture of engagement within theorganization. The organization should make it apriority to provide feedback to its staff despite thelimitations it may be working under. Using theOffice of the Ombudsman to fulfil the task of com-municating reasons why an administrative decisionhas been made, for example, is not a correct use ofthe ombudsman function. The Funds and Programmes should maintain the

principles of transparency in recruitment, especiallywhen the Administration decides that a desk-reviewor a strategic placement is in the best interests of theorganization. In addition, the Funds and Programmesshould increase the frequency of monitoring staff thathave been recruited following such a process. While the Funds and Programmes do have induc-

tion programmes, it seems that they are not fullyimplemented nor are they of the kind recommendedearlier in this section. The organizations should makeefforts not only to ensure that all staff have beengiven an induction to the organization but also thatthe quality of the induction allows the staff to have aninformed opinion of the practices and culture of theworkplace. In order to sustain the momentum intro-duced during the induction programmes, the Fundsand Programmes should introduce mentoring pro-grammes or reinforce those in existence to promotean effective work environment and to provide careerguidance and assistance to staff that have beenaffected by restructuring. As a powerful institutionalresource, a mentor can provide useful advice anddirection on how to manage careers and where tolook for other opportunities, especially to staff whoseposts have been abolished. Inter-agency mobility is a hallmark of the United

Nations and is strongly supported by the Secretary-General. While in general the Funds and Pro-grammes encourage staff mobility (with the caveatsnoted earlier in the present report), it is essentialthat in succession planning exercises, the Adminis-tration include staff on secondment as well as thoseon special leave in the inventory of skills.

What can the Ombudsman do?When the visitor gives permission, especially in circumstances where a post has been abolished,


A good recruitment decisioncan be sustained only by an equally good inductionprogramme: at all levels of

recruitment, the organizationshould invest in sharing withnew staff its values, ethics

and culture and equip themwith the knowledge that willhelp them to integrate swiftly

and effectively into their new work environment.


the Office of the Ombudsman may approach theAdministration to request that feedback be given tothe applicant. As noted above, this is essential forthe person whose post has been abolished; it mayalso be useful in managing conflict in the depart-ment or country office affected.One of the principal services of the Office of the

Ombudsman is to assist visitors to examine options;unfortunately, it is impossible to do so when there isa severe lack of information regarding the situationthat has brought the visitor to the Office. One possi-bility is for the Ombudsmen to try to enter into dia-logue with representatives of human resourcesservices. In some instances, this can be very valuablesince the Ombudsmen may be able to ascertainwhere the real problem lies and help both the visitorand human resources to address it in a practical, ethical and understanding way.The Office of the Ombudsman has shared with

some representatives of human resources a model forthe introduction or strengthening of a mentoringprogramme.

E. Abrasive behaviour in the workplace

The issueIn its research into the causes of conflict in theworkplace and in its professional outreach andexchanges, the Office of the Ombudsman team hasfound that “abrasive behaviour” is an apt descriptionof how some people show little concern for thefeelings of others in the modern workplace. In fact,it has become increasingly clear that the concept offeelings hardly arises in daily work. The widely heldmyth is that most employees come to the workplaceto perform certain defined tasks for which they willreceive a certain amount of supervision. They willthen return home, where they are allowed to showtheir feelings. In the view of the Office of theOmbudsman team, this is an unrealistic concept ofhow employees interact on a daily basis – a morerealistic assessment is that feelings are a constant inhuman life and are consequently very much part ofthe workplace landscape. The Office does not meanto suggest that employees should therefore focus onfeelings instead of tasks but rather that workplaceproductivity is greatly enhanced when attention isplaced on workplace relationships as well asdeliverables.

What does abrasive behaviour look like? Abra-sive behaviour takes on many forms and usuallyranges from deliberate avoidance of interaction toopen confrontation. The Office of the Ombudsmanhas received grievances from visitors who complainthat there has been no direct communication withtheir supervisors. Employees have also asked to seean ombudsman because they felt that their supervi-sor was undermining their authority. Incidentsinvolving public humiliation at office meetings orprivate discussions on matters regarding an em-ployee in the absence of the employee concernedhave caused unstable working relationships. Thisabrasive behaviour involves employees in a supervi-sor/supervisee relationship but also interactionsbetween peers. Below are some quotations fromemployees who were subjected to abrasive behaviourin their workplace:

“I want an apology. I feel totally humiliated.”“I feel that my functions are being devalued andundermined. I don’t feel respected as a professional.”

“Everything first is a no and then a yes with noreason to do so. It is unpredictable.”

“I feel like I am a boxing ball between my two supervisors.”

“She always wants to do things the way she wantsand doesn’t accept any other ideas or views.”

“He shouted at me ‘do not touch my project.’’

“My supervisor does not delegate but micro-manages everything and it affects the team moralein the office.”

“He shows authoritarian behaviour which brings fear.’’

What can the organization do?Abrasive behaviour can cause extreme suffering inthe workplace. It is essential that the Funds andProgrammes acknowledge that this type of behav-iour exists and is disruptive to the organization’smandate, results and reputation. They should there-fore carefully analyse its underlying causes and takeaction to assist the parties involved. They shouldhelp abrasive individuals to understand the implica-tions of their behaviour instead of ignoring it orpersonalizing the problem. In dealing with abrasivebehaviour, the element of perception is critical.

While perception is by its nature subjective and notalways a reflection of reality, it can in fact becomereality, as anyone subjected to perceived abrasivebehaviour can attest. The analysis of what has led toabrasive behaviour in the workplace should there-fore focus as much on understanding the perceptionas on gathering facts. Senior management should demonstrate that

abrasive behaviour will not be tolerated. Self-man-agement skills and emotional intelligence should beconsidered as core competencies to be systematicallyassessed at entry level. Those in leadership positionsshould be recruited for their leadership qualities aswell as for their technical skills. Leadership qualitiesshould include interpersonal competence and skillsin self-management and emotional intelligence andthose recruited in these positions should be pre-

pared to demonstraterole-model qualities thatcan be emulated by all.Senior management

should remind supervi-sors that they areaccountable for the over-all efficiency and effec-tiveness of their teamsand that through theirleadership they bear theresponsibility of estab-lishing and maintaining aproductive, harmonious

work environment consistent with the ethics of theUnited Nations. The effective management ofhuman resources is not the sole responsibility ofhuman resource offices – all supervisors have anessential role to play in this function.The Funds and Programmes may wish to invest

in leadership coaching experts to improve the qual-ity of leadership of those already in managerial posi-tions. In the experience of the Ombudsmen, suchqualities will not be harnessed solely through rou-tine training exercises on communication or teamwork. An individualized, tailored approach is usu-ally required for noticeable behavioural change totake place. The Funds and Programmes also have the option

of removing an abrasive manager from a leadershiprole and transferring the person to a position thatdoes not require the management of people.

What can the Ombudsman do?Visitors to the Office of the Ombudsman Officesometimes lack a full understanding of what exactlyconstitutes harassment or abuse of authority. With-out providing legal advice, the Office can assist inproviding guidance on how to interpret behaviourthat is perceived as abusive, including distinguishingresponsible managerial responsible action from abu-sive behaviour and misconduct. This is particularlyimportant in dealing with performance appraisals,when an objective approach may be interpreted asharassment or abuse of authority. The Ombudsmencan help both supervisor and supervisee not tocloud the issue by avoiding inflammatory languageand emotional responses. The Office of the Ombudsman often explores

options available to employees who report that theyhave been affected by abrasive behaviour. TheOffice has used mediation and has facilitated directcommunication between parties to discuss and clar-ify misunderstanding due to lack of proper commu-nication. Since both parties participate voluntarilyin the process, the Ombudsmen make every effortto engage them before a conflict escalates.By the time that some employees come to the

Office of the Ombudsman, they have been affectedby the perceived abrasive conduct of another col-league to such an extent that they are unable to fullyconcentrate on their work. The Office providescoaching sessions and considers ways to empowerthe visitor to communicate with the supervisor orcolleague in order to find a resolution to the differ-ences between them.It is not unusual for abrasive behaviour to affect

an entire office even though only one person is tar-geted by the perceived aggressor. The Office of theOmbudsman has been invited to consult and trainoffice personnel in how to manage conflict whensuch behaviour is prevalent.

Performance appraisals and abrasive behaviourAbrasive behaviour sometimes occurs between super-visors and supervisees during performance appraisals.At these times, the abrasive behaviour is usuallyreflected through a communication breakdownbetween the parties, with ensuing feelings of isola-tion, fear and disrespect. As a result, instead of beingused as a tool to build skills and enhance organiza-tional efficiency, the performance appraisal is used as


The effective managementof human resources is

not the sole responsibility of human resource

offices – all supervisors have an essential role to play in this function.


an opportunity to settle scores and damage profes-sional reputation. Figure 6 shows a breakdown ofevaluative relationship issues (i.e., relationshipsbetween supervisors and supervisees) brought to theattention of the Office of the Ombudsman.There can never be too much communication

when dealing with performance evaluation. It is notenough to relegate performance appraisal to the illu-sion that communication has taken place. As a basisfor giving and receiving feedback, it is irresponsiblefor both supervisors and supervisees to rely on casualconversations or to address the issue in team meet-ings. Dialogue should be respectful and continuous,resulting in empathy and understanding by both par-ties. The Office of the Ombudsman has noticed thatin most of the organizations, the supervisors often donot devote sufficient time during working hoursthroughout the year to engage in ongoing dialoguewith their supervisees to discuss performance. It isunquestionably beneficial in many ways when asupervisor gives realistic feedback on a supervisee’sperformance. Feedback is important not only in areaswhere the supervisee has been doing well – the super-visor should illustrate through concrete exampleswhere the supervisee needs some improvement andhow that can be attained. This kind of approachencourages the development of the supervisee, fosters

a collaborative climate in the workplace and, veryimportantly, increases the productivity of the entireteam in the long term. It also identifies areas wherefurther training or develop-ment might be needed. Inthe event of poor perform-ance, the supervisee hastime to address the prob-lems through correctiveaction. It is vastly preferablefor the supervisee to engagein ongoing dialogue rather than to be surprised athearing at the last moment that performance hasbeen inadequate in some way. The Office of the Ombudsman has consistently

drawn attention to this pattern for the last 10 years.Notwithstanding the efforts some organizations havemade in this regard, as noted in the introduction tothe present report, the Office has not observed anygreat changes in that period. Supervisors tend tounderutilize the provision of verbal feedback, prefer-ring to give a rating (only a number) in the onlineperformance-appraisal system. This can have little orno meaning for the supervisee. In addition, it createsa conflict at the workplace because it may come as asurprise since expected deliverables for the specificroles (terms of reference are often too generic and

Figure 6. Evaluative relationship issues

14%

Performance managementand feedback

Team climate and morale

Respect/treatment

Reputation

Other

0% 5% 10% 15% 20% 25% 30% 35%

10%

8%

1%

4%

31%

18%

14%Interpersonal di!erences

Communication

Performance appraisaland grading

It is not enough to relegateperformance appraisal to theillusion that communicationhas taken place.

lack clarity for what exactly is expected) have notbeen discussed at all in the initial stages. Lots ofassumptions are made and it is only when problemsarise that both parties, with increasing worries andfear, start discussing the issues.

What can the organization do?Through their professional exchanges and interac-tions, the Ombudsmen have learned that it is muchmore effective to foster regular dialogue on perform-ance rather than to concentrate on a performanceappraisal system that requires an annual numericalrating of the supervisee. The dialogue may be com-plemented by an online narrative evaluation. Fre-

quent discussion, exchangeof views and pointers forenhanced performancemake it easy to completethe appraisal in a timelyand relatively easy fashion.Supervisees would nolonger see the appraisal asa punitive measure butrather as an instrumentthat holds no surprises, isrealistic and allows for fur-ther training and develop-ment if necessary.The Funds and Pro-

grammes may wish to con-sider introducing this kindof approach since it helpsto create a collaborativerather than competitive

working environment. In the event of real conflictand disagreement over performance, a rebuttal systemmust be in place that gives supervisees a place to pres-ent their side of the story, both with regard to the rat-ing and the content of the appraisal. The entire issueis then reviewed by a neutral panel. The resultingdocument should be placed on the official file of thesupervisee. The Ombudsmen therefore recommendthat the Funds and Programmes consider reviewingtheir existing performance rating systems to seewhether they serve the organization well or not.Clear reporting lines are a prerequisite for

accountability. The Funds and Programmes shouldtherefore make sure that each member of the work-force does in fact report to the officially designated

supervisor. In the case of multiple supervisors dur-ing a reporting period, management should ensurethat clear instructions are given to and followed byall the supervisors to ensure that the supervisee istreated fairly by all parties. The Funds and Programmes should require that

expected deliverables be clearly defined and dis-cussed at the beginning of the contract. Dialogueshould continue throughout the year to address anynew needs that may arise that would require differ-ent outcomes.All contract holders have the right to a perform-

ance appraisal before they leave the organization. TheFunds and Programmes should require all supervi-sors, as part of their own professional performanceresponsibilities, to finalize performance appraisals forall supervisees before they are separated from theorganization or before they leave their function. A mechanism should be established to ensure that

an appraisal is done in the event of a supervisor orsupervisee being reassigned, retiring or terminatingunder other circumstances. It is almost impossible toget this done after the fact, leaving the superviseewith a gap in his or her employment record.

What can the Ombudsman do?The Office of the Ombudsman has adhered to itsmandate of taking up performance-managementissues only when all official avenues have beenexhausted and not becoming involved in ongoingofficial organizational mechanisms. This has meantthat the Office often becomes aware of a perform-ance appraisal issue only once the process is com-pleted and the document signed by both parties,who are not usually in agreement. In some cases,however, when the Ombudsmen have been madeaware of conflict and serious lack of communicationbetween the supervisor and the supervisee, espe-cially with regard to performance evaluation, theyhave been able to work together with both parties tofoster an atmosphere of open discussion of perform-ance, laying the groundwork for the frequent, ongo-ing approach recommended above. The Office of the Ombudsman team is also able

to discuss with visitors how best to present theirown evaluation of their performance. It is notalways easy for some people to record their achieve-ments in a positive, objective manner, preferringinstead to understate their achievements lest they


Through their professionalexchanges and interactions,

the Ombudsmen havelearned that it is much more

effective to foster regulardialogue on performancerather than to concentrate

on a performance appraisalsystem that requires

an annual numerical rating of the supervisee.

appear to be boasting. However, supervisees areoften judged by their own accounts of their per-formance and if they appear lukewarm, it is very dif-ficult for them to engage effectively in a rebuttalprocess later should the need arise. In similar man-ner, some supervisees find it very difficult not toreact emotionally to a less-than-satisfactoryappraisal and turn to the Office of the Ombudsmanas a safe place to discuss their feelings and options.The Ombudsmen can help them to put personalfeelings aside, see things objectively and respondprofessionally to a poor appraisal.

F. Mental and occupational health in the workplace

The issueMental health issues now account for almost half ofall ill health among United Nations staff. As with anycategory of illness, mental health disorders varywidely in severity and chronicity, but if left unrecog-nized and untreated, can have a profound and debil-itating impact on a person’s career. In this regard andbased on discussions with relevant services and withvisitors to the Office, the Ombudsmen have learnedthat many staff do not receive timely diagnosis andtreatment. The United Nations Medical Services areaddressing this situation and the Ombudsmenunderstand that improvements in health care areplanned that will culminate in a more efficient occu-pational health care agenda. In addition, a move isenvisaged to a risk-stratified approach that will focuson staff with intrinsic health risks and on positionsand duty stations where staff health is placed athigher risk. Clearly, the United Nations needs to act.Organizations that have invested in tackling ill healthearly are seeing a good return on investment, suggest-ing a strong business case for their actions. For theUnited Nations, the return on investment in target-ing treatment will enable the Organization to bemore proactive about early intervention and preven-tive measures. The Funds and Programmes willneed to work together with the United NationsMedical Services and other partners in a system-wideapproach to addressing mental health care in theUnited Nations workplace.In the modern workplace, levels of stress have

been on the increase for a number of years. Factorsthat have a direct impact in this domain include

increased levels of complexity, continuous demandson reviewing business processes for efficiency gainsresulting in reorganization, downsizing, contractualchange or separation from service, all of which canhave a profound effect on anyone who works in anorganization. The Ombudsmen have addressed manycases in the Funds and Programmes where these fac-tors come into play: visitors have reported extremelevels of stress, resulting in feelings of depression,physical exhaustion, mental fatigue and destabiliza-tion. Often, a situation that is in itself life-changingand affects mental well-being – loss of job, change ofcontract, for example – is exacerbated by the lack ofawareness of both employers and employees in deal-ing with people sufferingfrom various forms of dis-tress. In these scenarios, itis quite possible to make awrong decision, one withwhich one often has to livefor the rest of one’s life.The Ombudsmen have

had many interactionswith stakeholders involvedin addressing stress in theworkplace and efforts toseek solutions have oftenbeen uncoordinated. As aresult, the Ombudsmenfirmly believe that positive results can be achievedonly through a joint, coordinated and comprehensivestrategy for occupational health management, pro-actively supported by senior management. It is essen-tial that the organizations accept the responsibility oftaking measures to safeguard mental health ratherthan regarding it as a problem to be dealt with solelyby the individual. Rather than focusing on interven-tion when the damage is done, the strategic objectivehas to be to keep people healthy and to dedicateresources to that goal. In addition, the current trendof categorizing the causes of ill mental health aspurely medical in nature (“medicalizing” them) mustbe turned around. This can be done by activelyinvolving managers in exercising a corporate duty ofcare. Equally important, managers must be trained toassume their role in addressing the needs of affectedstaff and coordinating with human resources depart-ments and the Medical Services in situations whereprofessional medical support is required.


The Funds and Programmeswill need to work togetherwith the United NationsMedical Services and otherpartners in a system-wideapproach to addressingmental health care in theUnited Nations workplace.


There is, however, anapparent reluctance toassume such responsibil-ity. This is partly due tothe absence of know-howand lack of experience. Anadditional reason may berelated to the financialconsequences of dealingwith mental-health issues,which are borne by centralresources, while costs formedical treatment afterthe damage has occurred

are not covered by central resources but by inde-pendent insurance companies.

What can the organization do?In order to bring about the required corporatechange, the Ombudsmen have identified severalareas for action:

a) Training. It is essential that all those who dealwith staff undergoing stressful situations be ableto recognize warning signs and know how to referstaff to the appropriate professional services. Aspart of this effort, there should be dedicatedtraining manuals for managers on how to dealwith staff suffering from different forms of stress;

b) Communication. In the kind of scenarios thatcan easily undermine a person’s ability to func-tion effectively, it is critical that communicationbe open and courteous. The Ombudsmen haveobserved that this is often not the case. Too fre-quently, there is a dearth of information and theperson facing uncertainty resorts to speculation,which in turn leads to feelings of abandonmentand anguish (commonly reported to theOmbudsmen). Interaction with the organiza-tion begins to resemble warfare and visitorsspeak of losing the battle, overpowered by thestrength of the organization;

3) Prevention. Once the organization acceptsresponsibility for ensuring an environment con-ducive to mental well-being, it is easier to put bestpractice in place. When the organization is mov-ing to separate a staff member, for example,utmost care must be taken to explain the different

options clearly. This is not a matter simply ofreferring the person affected to the relevant sec-tions of the human resources manual on a websiteor sending a form letter bearing the devastatingnews. Everyone has a shared responsibility in thisprocess, from the administration that takes thedecision to abolish a post, for instance, to thedirect supervisor and the head of the professionalunit. In particular, when the organization has totake the decision to separate a long-serving staffmember with a record of good service, care shouldbe taken in the process to recognize the contribu-tion of the staff member and ensure that the act ofleaving the organization is accorded a certain dig-nity. The number of visitors whose morale andemotional state have been adversely affectedshows that the human touch is often lacking inthese situations;

4) Identification. When it becomes clear that astaff member needs help with a mental-healthissue (whether caused by adverse work conditionsor not), it is important to deal with the issue froma medical standpoint. However, it is equallyimportant not to rush to “medicalize” the cause ofthe problem. To try to head off a medical emer-gency and resolve the issue at hand, steps shouldbe taken to assess the total work environment insituations where there are indicators of potentialproblems that could lead to the need for medicalintervention. This will require the kind of train-ing recommended above and a commitment fromthe organizations to act swiftly and impartially toredress the situation. In addition, the organiza-tions should take the time and care to assist andsupport staff that do have mental-health issuesrather than seeking a way to separate the staffmembers and relinquish responsibility.

What can the Ombudsman do?As agents of change, the Ombudsmen look forwardto broadening collaboration on mental-health issuesin the dialogue that they have initiated on a numberof fronts to improve the management of conflict inthe organizations that they serve. The time haspassed when the only approach was to deal with staffon a case-by-case basis. The time has come for allactors to recognize the common causes of mental illhealth in the work place and assume the responsibil-ity of an institutional approach to addressing them.

It is essential that theorganizations accept

the responsibility of takingmeasures to safeguard

mental health rather thanregarding it as a problem

to be dealt with solely by the individual.

BackgroundAs a component of informal conflict resolution inthe United Nations global workplace, mediation is aparticularly suitable option since the concept itself iswidely and fairly uniformly accepted by people fromdifferent cultures and backgrounds. Those whowork for the United Nations are well aware of theOrganization’s role as mediator in the mostintractable situations throughout the world. Inparagraph 15 of its resolution 61/261 on the admin-istration of justice at the United Nations, the Gen-eral Assembly affirmed mediation “as an importantcomponent of an effective and efficient informalsystem of administration of justice that should beavailable to any party to the conflict at any timebefore a matter proceeds to final judgement”. Thishas been readily embraced by the workforce.In helping to resolve a dispute, mediation offers

a number of advantages: it is quick and avoids theoften costly and time-consuming process of havingrecourse to the formal system (notably, judges at theDispute Tribunal have the option of mandatingmediation in cases before them when they believethat mediation can bring about an effective resolu-tion); it provides a necessary, safe place where bothparties, through the impartial, facilitating role of themediator, are able to discuss positions and optionsopenly and have an opportunity to see the perspec-tive of the other party and understand the impact oftheir actions on each other; it can result in resolu-tions that both parties own and that are creative ina way that may otherwise not be possible; and itsprocess remains confidential and can provide a face-saving solution. In the same way that an ombudsman cannot be

an advocate for either party in a dispute, a mediatorremains impartial and does not control the outcomeof mediation. The outcome will always remain in

the hands of the parties themselves. This approachprovides an opportunity to bring a human face toconflict and is consistent with the motto of theOffice of the Ombudsman “working together tofind solutions”. It is important to bear in mind thata mediator should be a trained professional with theknowledge and experience in this specialized fieldto act as a neutral third party. The process in thissense depends heavily on the skill of the mediator,who will be able to keepthe parties in charge oftheir own exchanges andkeep them engaged andinvolved. An importantcomponent of a profes-sionally facilitated media-tion is the settlementagreement that both par-ties, and only the parties,sign when agreement hasbeen reached. Withoutstrict adherence to accepted professional mediationstandards, an agreement can easily unravel later, cre-ating a truly intractable situation. The members of the United Nations workforce

can, of course, use many of the advantageous tech-niques of mediation in their daily work withoutwaiting until a mediation session takes place. Someof the Funds and Programmes have provided semi-nars, workshops and training modules on the ele-ments of mediation, such as effective listening skills,understanding other perspectives and maintainingrespect for others. These efforts are very importantin the landscape of conflict management and reso-lution since they can show how the willingness sim-ply to engage in open dialogue with the other partyis a huge step in the direction of resolving differ-ences. Participation in conflict management skills


Without strict adherence to accepted professionalmediation standards, an agreement can easilyunravel later, creating a truly intractable situation.

Mediation in informal conflict resolutionin the United Nations workplace

Chapter III

can show all stakeholders how much can beachieved once the decision has been taken to give allparties the chance to speak, to listen and to beheard. This does not mean that the Office of theOmbudsman believes that anyone who has acquiredthese basic skills can facilitate a mediation session orthat the need for qualified mediators of the kinddescribed above will fade. It does mean that thechances of early resolution of a conflict increasewhen all the members of the workforce – staff andmanagement alike – understand the full potential ofthe elements of mediation and how to apply them asquickly as possible when a conflict arises. TheOffice will continue to strive to find ways in whichit can help this to become the norm in the Fundsand Programmes.

The role of the Office of the OmbudsmanThe Office of the Ombudsman is increasingly draw-ing on the potential of mediation not only because ofthe expertise of the team but also because visitors,both staff and management, themselves requestmediation. The Ombudsmen have seen that whenparties agree to try mediation, they are very oftenalready on the road to finding a solution. For exam-ple, when there is a dispute about performance, theparties may have come to realize that their own one-on-one conversations have not advanced themtowards a mutually acceptable position. In asking formediation, they have understood that the presence ofa third, neutral party can provide for a safe space andcan help them to crystallize their own thoughts,make them open to listening to the other side of thestory and move to closure. By way of example, theOmbudsmen have witnessed, as mediators, that bothparties can learn some enlightening aspects of theirown perception of how the other party thinks, whichcan bring greater respect and understanding and easethe way to reconciliation and progress. The supervi-sor may see how her or his remarks, perhaps intendedas encouragement, have been misinterpreted and thesupervisee may understand the pressures facing thesupervisor that had previously not been taken intoaccount. This is especially true when both partieshave some degree of management responsibilitiesand they are able to recognize the challenges andconstraints under which the other party is operating.Whatever the scenario (and the Office has mediatedin cases where peers have had strong disagreement),

a successful mediation can have extraordinary powerto lay the basis for strengthened, positive cooperationand can change the climate of the workplace for the better. The use of mediation in conflict resolution does

not work in every case. There are situations thatmight require a judgement to clarify the interpreta-tion of certain regulations and rules and their appli-cation so that justice prevails. In this context, it isextremely important to remember that if the regula-tions and rules are not clearly understood by all par-ties concerned – including the mediator – the risk isthat any informal resolution will not be based onsound premises. In other cases, problems have beenallowed to fester over years and have escalated to sucha point that informal conflict resolution seems nolonger possible. When consulted in such instances,the Ombudsmen believe that an appeal to the ethicalstandards expected in the international civil servicesmay help parties to understand that it is in the inter-ests of the United Nations and in their own intereststo make every attempt to engage in open discussionin the non-threatening environment provided eitherby a mediator or an ombudsman. In dealing withlongstanding conflicts, the Ombudsmen have notedthat the sense of vocation to international service anddedication to United Nations ideals have sometimesbeen badly eroded. Nevertheless, the Ombudsmenhave found that with a patient approach, accompa-nied by coaching, it is possible, for example, to moveto mediation or to reach an equitable solution in caseswith a history of confrontation and conflict stretch-ing back many years before being brought to theattention of the Office of the Ombudsman.

The role of the organizationIn their ongoing efforts to transform the organiza-tional culture to one in which conflict can be effec-tively addresses and managed, the Funds andProgrammes might wish to consider the followingfactors that have been shown to be instrumental forsuccessful informal conflict and problem resolution,particularly with regard to mediation.

1. Corporate supportThe potential for informal conflict resolution isembedded in organizational culture. Corporatesupport that encourages both informal conflictresolution and a mediation culture significantly


increases the readiness of management andstaff at large to engage in informal conflict res-olution processes. This is not a given in organi-zational cultures that are still too often toohierarchical and do not lend themselves to col-laborative processes such as mediation, whichflatten those structures.

2. Early engagementThe longer a conflict remains unaddressed, themore difficult it becomes to resolve it infor-mally. A wide-spread avoidance culture in theworkplace and large diversity in culturalapproaches to conflict management in a glob-ally operating organization pose challenges toearly engagement in conflict situations. TheOffice of the Ombudsman provides a safe placeto address some of those challenges toempower colleagues to feel comfortable toaddress conflict early and thus contribute tohigher potential for an early resolution.

3. Collaborative practiceFight or flight reactions are common in conflictsituations. Collaborative practice provides amore promising alternative. Collaborative prac-tice invites active listening, separation of the

problem from the person and the identificationof underlying interests and needs.

4. Power balanceWork environments tend to be prone to hugepower imbalances, including strong hierarchies.Informal conflict resolution, including media-tion, has limited to no potential in situations ofsignificant power imbalances between the par-ties. A mediator may be in a position to suc-cessfully address those imbalances sincemediation is in effect an invitation to cutthrough hierarchies and organigrammes andseek a space for collaborative dialogue withoutregard for grades and positions. The mediatorprovides that space, where the parties feel pro-tected and bring a positive tone to facilitate asolution in a face-saving way.

5. Appreciative inquiry/ self-awarenessInformal conflict resolution tools, in particularmediation, are underpinned by the readiness ofthe parties to take a step back and to reflect ontheir positions and behaviours, and an attemptto see the other party’s needs and intereststhrough active listening.


The experience gained over the last 10 years isextremely valuable in charting the course of opera-tions for the next decade of the Office of theOmbudsman for United Nations Funds andProgrammes. In fact, the history of informal conflictresolution in the Funds and Programmes stretchesback as far as the 1980s, to the Ombudsman Panel,the precursor of the present Office. A lot has been

learned in that time abouteffective informal conflictresolution in global organ-izations that employ 85per cent of their staff in thecountry offices. In theearly days, it was difficultto respond quickly to staffmembers reporting griev-ances from the countryoffices: surface mail took along time, internationaltelephone calls wereexpensive and there was notravel budget for the vol-unteers who were mem-bers of the Ombudsman

Panel. If one of the members went on mission, itwould be possible to address grievances in the officesvisited; otherwise, staff members away from head-quarters had to endure a long wait for assistance inaddressing their grievances. Things changed dramatically with the establish-

ment of the Office on a fully funded, independentbasis in 2002: it became possible for an ombudsmanto travel to country offices to address grievances andto raise awareness of the services of the Office. Evenmore dramatic were the possibilities of rapid com-munication offered by the World Wide Web. Withthe evolution of a multitude of web-based tools,

including telephonic communication, remote-con-ferencing software and videoconferencing mecha-nisms, finding solutions to workplace disputes hasbecome increasingly virtual in nature. In the experience of the Office, the use of tech-

nology has not hampered the quality, frequency andeffectiveness of virtual interventions. Indeed, theuse of technology has been a practical and cost-effective option allowing for immediate attentionand easier accessibility to employees who are facingdifficult situations in the workplace. The Officelooks forward to reviewing with its users and stake-holders the potential of online dispute-resolutiontools. The Office also plans to maximize the use ofthe appropriate technology to prepare the workforceof the Funds and Programmes to address conflictearly and competently. It is envisaged that morewebinars will be arranged with the objective oftraining and maintaining dialogue on workplaceconflict issues. Online dispute mechanisms will notonly allow more accessibility but will also facilitatean increased focus on identifying patterns of dis-putes and thus enhance dispute-managementefforts on a system-wide basis. An important goal ofthe Office is not only to continue to be effective inits intervention in the workplace but also to build upconflict management competence within the organ-izations that will help to support dispute preventionefforts undertaken by other stakeholders.Building on the pilot phases of an electronic,

confidential questionnaire sent to visitors to gaugetheir experience with the Office of the Ombudsmanand to provide feedback for continuing improve-ment, the Office will introduce the questionnaire ona fully operational basis in 2013. The results will beincluded in the next annual reportThe Office of the Ombudsman will strengthen

its efforts to sensitize all stakeholders to the impor-


Looking ahead

Chapter IV

Online dispute mechanismswill not only allow more

accessibility but will also facilitate an increased

focus on identifying patterns of disputes and thus enhance dispute-

management efforts on asystem-wide basis.


tance of building comprehensive conflict manage-ment systems. This will include regular joint meet-ings of conflict management stakeholders andsupport to the process by providing expertise avail-able from organizations operating conflict manage-ment systems.The Ombudsmen thus see the future of infor-

mal-conflict management in the Funds andProgrammes as an increasingly participatory processin which they will be able to provide the profession-al expertise to empower all staff to deal with conflict

efficiently. Of course, there will always be occasionswhen the intervention of the Ombudsmen in per-son will be the most effective measure to deal withindividual conflicts. The Ombudsman will continueto fulfil their role as early-warning monitors ofshifts in the workplace climate and as agents ofchange for the Funds and Programmes. For allmembers of the workforce wishing to explore theiroptions in a confidential setting, the Office willalways offer a safe haven, one that will be increas-ingly accessible thanks to technological innovations.


Conflict management systems1. For conflict management systems to be success-ful, the expressed commitment from seniormanagement is essential at an early stage. Inaddition to management support, a long-termstrategy needs to be developed and the associ-ated budget approved to undertake successfullythe tasks and objectives relating to conflictmanagement. This must build on a corporateunderstanding of the financial, human and rep-utational risks of badly managed conflict.

Career and talent management2. It is important for all organizations to rememberthat the workforce is their greatest asset and totake into account the human dimension whenembarking on new initiatives; they should avoidgiving even the impression of regarding staff as aliability. In the experience of the Ombudsmen,when staff members are regarded as a liability,they can easily become one with resulting con-flict, even law suits. It is also important for theorganizations to remember that when staff feelbadly treated, the word spreads quickly andcauses reputational damage.

Restructuring and organizational change3. In devising long-term vision and strategy sup-ported by a robust communication strategy in arestructuring process, the Funds and Pro-grammes should not only communicate therationale for change but also the ways in whichchange is going to be implemented. Thisshould include options that will be available tostaff who are unsuccessful in obtaining postsduring the restructuring and notifications tostaff whose posts have changed owing to budg-etary considerations.

4. The organizations should try to minimize thead hoc characteristics that seem to have becomea part of change and restructuring efforts.Action to address this should be coordinated byheadquarters or through the regional divisionsand bureaux.

5. It is important that the organizations developan inventory of available skills before enteringinto a restructuring exercise. Managementshould analyse the skills that the current work-force possesses before deciding to search exter-nally for other candidates. This kind ofplanning would help to give an idea of wherethe skills deficiencies lie.

Job and career issues6. The Administration should improve the quali-ty and frequency of its feedback, especially insituations where, following the abolition of apost, staff are engaged in seeking other oppor-tunities and have requested feedback that couldbetter position them in their job search. In theexperience of the Ombudsmen, such a difficultprocess can be successfully implemented only ifthere is a culture of engagement within theorganization. The organization should make ita priority to provide feedback to its staff despitethe limitations it may be working under. Usingthe Office of the Ombudsman to fulfil the taskof communicating reasons why an administra-tive decision has been made, for example, is nota correct use of the ombudsman function.

7. The Funds and Programmes should maintainthe principles of transparency in recruitment,especially when the Administration decidesthat a desk-review or a strategic placement is in

Recommendations

Annex 1

the best interests of the organization. In addi-tion, the Funds and Programmes shouldincrease the frequency of monitoring staff thathave been recruited following such a process.

8. The organizations should make efforts not onlyto ensure that all staff have been given aninduction to the organization but also that thequality of the induction allows the staff to havean informed opinion of the practices and cul-ture of the workplace. In order to sustain themomentum introduced during the inductionprogrammes, the Funds and Programmesshould introduce mentoring programmes orreinforce those in existence to promote aneffective work environment and to providecareer guidance and assistance to staff that havebeen affected by restructuring.

9. While in general the Funds and Programmesencourage staff mobility (with the caveatsnoted earlier in the present report), it is essen-tial that in succession planning exercises, theAdministration include staff on secondment aswell as those on special leave in the inventory of skills.

Abrasive behaviour in the workplace10. Abrasive behaviour can cause extreme suffer-ing in the workplace. It is essential that theFunds and Programmes acknowledge that thistype of behaviour exists and is disruptive to theorganization’s mandate, results and reputation.They should therefore carefully analyse itsunderlying causes and take action to assist theparties involved. They should help abrasiveindividuals to understand the implications oftheir behaviour instead of ignoring it or per-sonalizing the problem. In dealing with abra-sive behaviour, the element of perception iscritical. While perception is by its nature sub-jective and not always a reflection of reality, itcan in fact become reality, as anyone subjectedto perceived abrasive behaviour can attest. Theanalysis of what has led to abrasive behaviourin the workplace should therefore focus asmuch on understanding the perception as ongathering facts.

11. Senior management should demonstrate thatabrasive behaviour will not be tolerated. Self-management skills and emotional intelligenceshould be considered as core competencies tobe systematically assessed at entry level. Thosein leadership positions should be recruited fortheir leadership qualities as well as for theirtechnical skills. Leadership qualities shouldinclude interpersonal competence and skills inself-management and emotional intelligenceand those recruited in these positions should beprepared to demonstrate role-model qualitiesthat can be emulated by all.

12. Senior management should remind supervisorsthat they are accountable for the overall effi-ciency and effectiveness of their teams and thatthrough their leadership they bear the respon-sibility of establishing and maintaining a pro-ductive, harmonious work environmentconsistent with the ethics of the UnitedNations. The effective management of humanresources is not the sole responsibility of humanresource offices – all supervisors have an essen-tial role to play in this function.

13. The Funds and Programmes may wish to investin leadership coaching experts to improve thequality of leadership of those already in mana-gerial positions. In the experience of theOmbudsmen, such qualities will not be har-nessed solely through routine training exerciseson communication or team work. An individu-alized, tailored approach is usually required fornoticeable behavioural change to take place.

Mental and occupational health in the workplace14. In order to bring about the required corporatechange, the Ombudsmen have identified sever-al areas for action:

a) Training. It is essential that all those whodeal with staff undergoing stressful situa-tions be able to recognize warning signs andknow how to refer staff to the appropriateprofessional services. As part of this effort,there should be dedicated training manualsfor managers on how to deal with staff suf-fering from different forms of stress;



b) Communication. In the kind of scenariosthat can easily undermine a person’s abilityto function effectively, it is critical that communication be open and courteous. TheOmbudsmen have observed that this isoften not the case. Too frequently, there is a dearth of information and the person fac-ing uncertainty resorts to speculation, whichin turn leads to feelings of abandonmentand anguish (commonly reported to theOmbudsmen). Interaction with the organi-zation begins to resemble warfare and visi-tors speak of losing the battle, overpoweredby the strength of the organization;

c) Prevention. Once the organization acceptsresponsibility for ensuring an environmentconducive to mental well-being, it is easier toput best practice in place. When the organi-zation is moving to separate a staff member,for example, utmost care must be taken toexplain the different options clearly. This isnot a matter simply of referring the personaffected to the relevant sections of the humanresources manual on a website or sending aform letter bearing the devastating news.Everyone has a shared responsibility in thisprocess, from the administration that takesthe decision to abolish a post, for instance, tothe direct supervisor and the head of the pro-fessional unit. In particular, when the organi-zation has to take the decision to separate a

long-serving staff member with a record ofgood service, care should be taken in theprocess to recognize the contribution of thestaff member and ensure that the act of leav-ing the organization is accorded a certain dig-nity. The number of visitors whose moraleand emotional state have been adverselyaffected shows that the human touch is oftenlacking in these situations;

c) Identification. When it becomes clear thata staff member needs help with a mental-health issue (whether caused by adversework conditions or not), it is important todeal with the issue from a medical stand-point. However, it is equally important notto rush to “medicalize” the cause of theproblem. To try to head off a medical emer-gency and resolve the issue at hand, stepsshould be taken to assess the total workenvironment in situations where there areindicators of potential problems that couldlead to the need for medical intervention.This will require the kind of training recom-mended above and a commitment from theorganizations to act swiftly and impartiallyto redress the situation. In addition, theorganizations should take the time and careto assist and support staff that do have men-tal-health issues rather than seeking a wayto separate the staff members and relinquishresponsibility.


“The first thing I remembered this morning wasthat I had not sent this email. Just to say thankyou for taking the time to coach me on Monday– much appreciated.”

“Thank you so much for talking with me thismorning. I appreciate your laying out the issuesfor me. This was very useful and I will thinkabout how to raise the issue with my supervisorhere. Thank you again for taking the time to talkto me and for advising me.”

“I’m sending you this email just to give you myregards and to thank you so much for your kindassistance and support while solving my issue.Furthermore, after my return everything hasbeen settled down with me and my family andthat of course is because of your support.”

“Thanking you for all your motivation and sup-port to me over the last 3 months.”

“Je tiens à vous remercier infiniment pourla promptitude avec laquelle vous avez réagi àcette demande. Tout échange de correspon-dance vous sera transmis, pour vous permettrede mieux comprendre ma situation. Merci infini-ment de votre appui.”

“Hearing from you was most encouraging andmost appreciated.”

“The Staff Association would like to thank yousincerely for offering to mediate on our behalf.Your assurance has given us relief and hope.Find attached a briefing on events and actionstaken to date after devaluations were effected inthe country.”

“We can’t thank you enough for collaboratingwith us on this issue to bring about a positiveoutcome.”

“I’m sending you this email just to give you myregards and to thank you so much for your kindassistance and support while solving my issue.”

“I am very relieved! So I can close this chapter.And I have recommended the Ombudsman totwo colleagues now.”

“I would like to take this opportunity to thankyou very much indeed for taking the time fromyour busy schedule to sit with me and discussmy predicament and talk with all the peopleinvolved. As you know, I was going through arough period but you helped me enormously. Ifind it very gratifying that a woman in such abusy and responsible position could take timeout to discuss my problems!”

“Soon I will be leaving the UN but I will never for-get what you did and your office, too. Again,thank you for everything you did for me.”

“I am writing this email to express my apprecia-tion with how you have dealt with me when Iwas having problems. Although I am not havingany foreseeable problems now, I would just likeexpress my gratitude just the same.”

“Te quiero agradecer por tu paciencia y espíritucolaborativo que permitió que colegas se acer-carán y pudieran expresar sus inquietudes.”

“Estoy muy contenta que gracias a su mediaciónlograremos uno, ser felices en nuestro trabajoy dos, estar dispuestos a “walk the extra mile”.

“You all have been so supportive and so helpful;you have been a real lifeline … I wanted tothank you all very warmly and sincerely foreverything.”

Voices

Annex 2


Issue Definitions

Annex 3

1. Compensation and Benefits Salary, pension, leave, health insurance, various entitlements

2. Evaluative Relationships Issues between colleagues with supervisory relationships

3. Peer and Colleague Relationships Issues between colleagues with NO supervisory relationships

4. Job and Career ProgressionIssues impacting job conditions or the career progression of the visitor: re-cruitment, contract, job description/classification, training, promotion, trans-fer and rotation, separation, abolition of post and retirement processes.

5. Legal, Regulatory, Financial and Compliance

Harassment, discrimination, retaliation, gender and geographic balance;investigative/disciplinary processes, waste, fraud and abuse of funds

6. Safety, Health, Wellbeing, Stressand Work/Life

Working conditions; general wellbeing and stress; accommodation for disability or health conditions; issues with health, safety and security

7. Services/AdministrationResponsiveness, timeliness and nature of response/services from sectionsproviding services to staff (HR, pension fund, tax unit, etc…)

8. Organizational, Leadership and Management

Organizational climate, morale, culture, communication; change manage-ment, issues with leadership in the organization and management styles

9. Values, Ethics and Standards Issues pertaining to United Nations Core values

1. Compensation and Benefits

1a. Compensation: Rate of pay, salary amount,job salary category

1b. Payroll Administration

1c. Pension

1d. Leave: Annual; sick; maternity; excludingspecial leaves, sabbaticals, suspension for disciplinary reasons

1e. Health Insurance and Medical Entitlements(including medevac; DSA; companion ticket, etc.)

1f. Dependent Benefits

1g. Taxes

1h. Recruitment Entitlements (relocation grant;shipment; etc.)

1i. Separation Entitlements (repatriation grant;shipping; sep. indemnities, etc.)

1j. Travel Entitlements (ticket, DSA, hotel,excluding medical travel)

1k. Special Operations/Hazard Entitlements

1l. Other

2. Evaluative Relationships

(Excluding harassment, discrimination and retaliation)

2a. Interpersonal Differences: Interpersonalconflict involving differences in personalities/suspicions of hidden motives/mistrust/different work styles

2b. Respect/Treatment: Demonstrations ofinappropriate regard for people, not listening,dismissive or rude behavior, unfair or prefer-ential treatment.

2c. Reputation: Potential impact of rumors orgossip about professional or personal matters

2d. Communication: Quality or quantity ofcommunication

2e. Team Climate and Morale: Prevailingnorms, behaviours or attitudes in work unit

2f. Performance Management and Feedback:supervisory effectiveness in performancecoaching, work assignment and support;feedback (or lack of ) given outside of regularperformance appraisal

2g. Performance Appraisal and Grading:Disagreements with the fairness ofperformance. evaluation or grading

2h. Other

3. Peer and Colleague Relationships

(Excluding harassment, discrimination and retaliation)

3a. Interpersonal Differences: Interpersonalconflict involving differences in personalities/Suspicions of hidden motives/mistrust/different work styles

3b. Respect/Treatment: Demonstrations ofinappropriate regard for people, not listening,rudeness, crudeness; unfair or preferentialtreatment

3c. Reputation: Potential impact of rumors orgossip about professional or personal matters

3d. Communication: Quality or quantity ofcommunication

3e. Team Climate and Morale: Prevailingnorms, Behaviours or attitudes in work unit

3f. Other

4. Job and Career

4a. Job Application/Selection and RecruitmentProcesses (recruitment and selectionprocesses, facilitation of job applications,short-listing and criteria for selection,disputed decisions linked to recruitment andselection)

4b. Post Classification and Description

4c. Involuntary Transfer/Change ofAssignment: Removal from prior duties,unrequested change of work tasks

4d. Terms/Conditions of Contract: Positionsecurity/Ambiguity/Contractual limitations

4e. Career Progression or Opportunities:Delay/denial of promotion; lack ofopportunities for career advancement

4f. Rotation & Duration of Assignment:Non-completion or over-extension in a job orlocation; area of rotation

4g. Resignation

4h. Termination

4i. Non-renewal of Contract

4j. Abolition of Post

4k Career Development: Coaching/mentoring/training/lack of opportunities for skilldevelopment

4m. Retirement Process

4n. Special Leave: Approval of; return fromSLWOP, SLWFP, excluding suspension fordisciplinary reasons

4o. Loan/ Secondment/Transfer: Inter-agencymobility; terms of loan, return from loan

4p. Other

5. Legal, Regulatory, Financial and Compliance

5a. Criminal Activity: Threatened, planned,observed; fraud

5b. Waste and Abuse of Funds: Inappropriateactions that abuse or waste organizationalfinances, facilities or equipment; propertydamage

5c. Harassment (Excluding Sexual): Behavioursthat creates a hostile or intimidating workenvironment; bullying/mobbing, abusive,threatening or coercive behavior

5d. Sexual Harassment: Unwelcome sexualconduct

5e. Discrimination (Excluding Gender):Different treatment compared with others or exclusion from some benefit on the basisof, for example, race, age, national origin,religion, etc.

5f. Gender Discrimination: Different treatmentcompared with others or exclusion from somebenefit on the basis of gender

5g. Retaliation: Punitive behaviors for previousactions or comments; whistleblower

5h. Investigative/Disciplinary Processes:fairness/duration/ adherence to rules andregulations during investigations andor/disciplinary measures.

5j. Visa Status: Issues arising in acquiring orrelinquishing travel or residency status forinternational staff members or their dependents


5k. Geographic and Gender Representation:Non compliance with policy or issues arisingfrom the application of policy

5l. Other

6. Safety, Health, Wellbeing, Stress andPhysical Environment

6a. Safety: Physical safety, injury, meeting localrequirements for training and equipment

6b. Physical Working/Living Conditions:Temperature, odors, noise, available space,lighting, cleanliness, etc

6c. Security: Adequate lighting, metal detectors,guards, limited access to building by outsiders,anti-terrorists measures

6d. Work/ Life: Issues with flexible workingarrangements/schedules.

6e. Stress: Stress deriving from work relatedissues; post-traumatic stress

6f. Disability and Accessibility: Temporary,permanent, reasonable accommodation,assistive technology

6.g. Other

7. Services/Administration

7a. Quality of Services: How well services wereprovided, accuracy or thoroughness ofinformation, competence, etc.

7b. Responsiveness/Timeliness: Response timeor time to completion

7c. Interpretation or Application of Rules:Impact of non-disciplinary decisions,excluding formal admin. reviews

7d. Behaviour of Service Provider(s): How anadministrator or staff member spoke to ordealt with a constituent, customer, or client,e.g., rude, inattentive, or impatient

7e. Other

8. Organizational, Leadership and Management

8a. Organizational Climate/Morale at theOrganizational Level (Distinct from 2e and 3e)

8b. Organizational Culture

8c. Organizational Communication: Content,style, timing, effects and amount; quality ofcommunication about strategic issues at theorganizational level (Distinct from 2d and 3d)

8d. Change Management: Making, respondingor adapting to organizational changes, qualityof leadership in facilitating organizationalchange on a large scale.

8e. Restructuring and Relocation: Effects ofreprofiling, organizational/unit downsizingrelocation or reorganization

8f. Leadership and Management (Quality/Capacity of Management): Quality/capacityof management/leadership decisions;management styles; accountability andtransparency; priority setting and/or funding

8g. Abuse of Authority/Positional Power:Improper use of a position of influence, poweror authority against subordinates

8h. Other

9. Values, Ethics and Standards

9a. Core Values: Non adherence to coreorganizational values (integrity,professionalism, respect for diversity)

9b. Accountability and Transparency:Issues with taking personal ownership forresponsibilities and deliverables/operating incompliance with organizational rules andregulations, secrecy

9c. Personal Conduct: Issues with fulfillingprivate obligations, respecting local laws andusing the privileges and immunities of theorganization

9d. Conflict of Interest: Appearing to benefitimproperly or to have a third party benefitimproperly from certain associations,relationships or financial interests (includinghonors, gifts or remuneration, favoritism tofamily or friends, outside employment/activities; business interests…)

9e. Use and Protection of Information:Using or divulging confidential informationwithout proper authorization

9f. Other


The Office of the Ombudsman is headed by the OmbudsmenMs Mame Diagne and Mr. Helmut Buss assisted by Ms. KentaroKanyomozi, Case Manager, Ms. Nancy Ross, AdministrativeAsso ciate, Ms. Sharon Gordon-Smith, Administrative Assistantand on-call consultants: Mr. Kojo Gyasi, Mr. James Lee, Ms.Susann Nowack, Mr. Eskandar Rastegar, Ms. Judit Revesz and Ms. Linda Schieber.

Office of the Ombudsman

Top – left to right: Linda Schieber and Susann Nowack

Below – front row left to right: Eskandar Rastegar, Mame Diagne, Helmut Buss, Sharon Gordon-SmithBack row left to right: Kentaro Kanyomozi, Kojo Gyasi, Judit Revesz, Nancy Ross, James Lee

Report of the Office of the Ombudsman for United Nations Funds and Programmes(UNDP/UNFPA/UNICEF/UNOPS/UN WOMEN)

1 January - 31 December 2012

Working together to find solutions

Empowered lives. Resilient nations.

Office of the Ombudsman for United Nations Funds and Programmes

UNDP, UNFPA, UNICEF, UNOPS and UN WOMEN

304 East 45th Street, 6th FloorNew York, NY 10017Tel: +1 646 781 4083Fax: +1 212 906 [email protected]

www.un.org/en/ombudsmanUnited Nations Entity for Gender Equalityand the Empowerment of Women

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