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National Representation in the United Nations

Published online by Cambridge University Press:  22 May 2009

Richard F. Pedersen
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Extract

The traditional concept of embassies and missions abroad as custodians of the national interest is a familiar one which applies also in the context of United Nations diplomacy. The responsibility for advancing national policy through the United Nations is borne by permanent missions and special delegations–representatives who, like their counterparts in bilateral diplomacy, act in close coordination with a state department or foreign office and under the instructions of their home governments. Because of the multilateral and “parliamentary” nature of United Nations diplomacy, however, the task of UN missions and delegations is in many ways more exacting than that of their traditional counterparts.

Type
Articles
Information
International Organization , Volume 15 , Issue 2 , Spring 1961 , pp. 256 - 266
Copyright
Copyright © The IO Foundation 1961

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References

1 The United States has 27 officers listed in the Bluebook and a total staff of over 100.

2 The functions subsequently described are substantially the same for “delegations” and “missions.” The term “delegation” is therefore employed except where an activity primarily limited to a mision is discussed, as in practice “delegation” is the term commonly used to embrace both groups.

3 Observations on the United Nations, Report of Senators Bourke B. Hickenlooper an d Mike Mansfield (Members of the U. S. Delegation to the 13th General Assembly of the United Nations), Government Printing Office, 1959, p. 7.

4 It should be noted that, because the present United States Representative to the UN is a member of the Cabinet, he has special access to the top level of policy-making in the United States government.

5 Hyde, James N., “U. S. Participation in the UN,” International Organization, 02 1956 (Vol. 10, No. 1), p. 25, 26, 28CrossRefGoogle Scholar.

6 In commenting further on the 13th session of the General Assembly, Senators Hickenlooper and Mansfield in their afore-mentioned report to the Congress stated: “Certainly it is true that central guidance of policy is necessary. However, if policy is to be pursued effectively in the General Assembly, which includes over 80 other nations-nations whose differing views as well as idiosyncrasies of their representatives must be reckoned with-the ambassadors and the members of the permanent mission must have a measure of freedom for parliamentary maneuver.

“We are not, on the basis of our limited experience, in a position to suggest precisely where the line ought to be drawn between firm central control over policy and flexibility in its pursuit at the United Nations. However, many of those who work day in and day out with other delegations over the years feel that the line that is now drawn errs on the side of excessive central control. As a result, it is contended, other delegations are often unnecessarily antagonized or alienated on particular issues and US representatives are frequently handicapped in their efforts to win support for undertakings in which we are interested.

“Our experience at the United Nations suggests that there is some validity in this contention. It is certainly the case that the official position on almost any issue is spelled out by Washington in very minute detail. The delegation is guided very closely not only on questions of substance but often even on matters of procedure. Again this is also the practice insofar as many other member nations are concerned.

“Nevertheless, during the course of a General Assembly, unanticipated developments often create a need for changes—frequently minor changes—in positions or procedure. These changes almost invariably require prior clearance from Washington. The requirement would not be so burdensome, perhaps, if only one bureau of the Department of State were involved in sanctioning them. Not infrequently, however, even a slight change in the phrase of a statement of an official position at the UN may call for clearance by any number of bureaus and offices scattered throughout various executive agencies and departments.

“Apart from the enormous cost in salaries and time which must be involved in these clearance practices, a desirable change may be so long delayed or so watered—down before it is sanctioned by Washington that it looses all or most of its value in New York.” (Senators Hickenlooper, and Mansfield, , op. cit., p. 7.)Google Scholar

7 The United States gives extensive coverage to UN activities over the Voice of America and through the United States Information Agency. During the long debate on Lebanon in the summer of 1958, the Voice of America used its facilities throughout the world to broadcast the debates as they occurred. Official information media and embassy public relations personnel are often alerted in advance so that they are in a position to capitalize quickly on United States speeches in the United Nations. Thus, properly prepared and coordinated speeches and statements may receive vast amounts of publicity throughout the world in a very short period of time and may be utilized as occasions for further elaboration of policy themes by embassies with the government concerned. Sometimes the stimulus for a speech of this sort may even come from information media people who sense the necessity of a restatement of United States policy.

Because of its primary interest in the propaganda and public opinion function of the United Nations, the Soviet Union delegation has been particularly conscious of these various factors. It frequently calls press conferences to enable it to reach the United States press as well as the press of other non-communist countries and to give added stress to statements it has made in Committees. It is also highly aware of the audience it wants to address. Analyses of statements by representatives of the Soviet Union in the General Assembly in recent years would show a large percentage of remarks obviously addressed to Asian and African countries.

8 Secretary-General Dag Hammarskjold before Student's Association, Copenhagen, Denmark, May 2, 1959, United Nations Revitw, June 1959, p. 22, 23.

9 The United States delegation currently receives about 200 letters a day.