ECAR Representatives' Response to ExDir's decisions on merger with MENA and ending programs in high-income countries

Dear ED Russell,

The Representatives in ECAR acknowledge the message from Staff Association dated 22 May 2025. We start by recognizing that these are unprecedented and difficult times for everyone (including leadership) while reiterating our full commitment to UNICEFs critical mission.

As your Representatives and long-serving UNICEF staff we are also fully committed to leading the required change with you, both ensuring we lean into our core strengths whilst embracing efficiency and innovation to be fit for the future. With this perspective, we feel compelled to share our reflections on the significant changes underway that will shape UNICEF's future. In this spirit, we reference the latest announcements – including merging ECARO/MENA and phasing out of HIC programing in Europe – to put forward some considerations and recommendations to help ensure our commitment to child rights and SDGs, especially those that may be left behind during these tumultuous moments for global multilateralism:

Data and Transparency - country offices are expected to provide clear cost and efficiency models, as well as consultative and transparent processes, as a fundamental part of any proposed change to ensure accountability. This is reinforced with CRITAS.

It is therefore deeply concerning—when comparable standards do not seem to have applied to major structural changes within the organization itself. At the field leadership level, we have not felt adequately equipped to understand the business case of some momentous decisions such as the merger of some Regional Offices, the phasing out from programming in high income countries in Europe and the establishment of Centers of Excellence.

We understand that swift decision-making is necessary. However, given the scale and impact of the changes underway, we believe minimum due process could have been strengthened—particularly to ensure socialization of the data, along with some rapid analysis and discussion around their implications for our mandate.

i) Recommendation: To maintain credibility and trust through the organization and with staff, we strongly recommend that any major organizational shifts be accompanied by transparent costing, efficiency analysis, and a clear articulation of how these changes (i.e. business case) will strengthen our ability to deliver for children. Meaningful consultations are suggested to take place prior to implementation as well as engagement with the GMT. Abrupt decision-making – and communications - should be avoided to ensure alignment with organizational values, operational stability, and staff well-being.

Aligning Organizational Support Systems to Country-Level Delivery - At the GLM and subsequent meetings, you articulated a clear commitment to undertaking all changes with a view to fundamentally strengthen our country level delivery of results keeping in line with the universality of our mandate. This is very welcome, and we would like to raise the following issues for your consideration as this commitment is operationalized; it would also be good to see prioritization of resources focused at country level; At present, the CoEs whose support COs rely on are being conceptualized, including their structure, operational mechanisms, and associated costs—remain undefined. Given the scale of this transition, moving forward with the rapid withdrawal of existing support mechanisms poses significant risks; With UN80 and shifting geopolitical dynamics, including growing vulnerability among children and youth, scaling down could be misinterpreted as disengagement. This will weaken our influence and partnerships just as key reforms are being negotiated. When sister UN agencies are intensifying their engagement with member states as donors and supporters, this will leave room for them to encroach on UNICEF's normative and technical mandate and expertise.

i) Recommendation: As primacy of Country Offices remains our core principle – and as a field-based organization we would propose a defined ratio of HQ-ROs/ COs-field staff. WHO, for example, focused on significant downsizing at HQ to prioritize field presence.

ii) Recommendation: We would propose to articulate a robust approach to determining Multi country approach for CPD countries (i.e. putting burden of proof on why MCs are needed vs why not)

iii) Recommendation: CoE's should define cost efficiencies and operational efficiencies and how these will be measured. As stated in the decision memo, there should be a clear articulation of how CoEs work with remaining ROs to ensure tailored, context-responsive support that is critical to COs. Until these elements are clearly articulated and validated, a well-planned and sequenced transition plan is essential to safeguard the quality and reliability of country-level support.

iv) Recommendation: In regard to the merger of ECARO with MENA as well as the decision to phase out programming in High Income Countries in Europe, discussions and planning with country offices impacted will remain critical, with well-planned transitions keeping in mind UN80 reforms and regional and subregional support that may be required.

Child Impact Red Flag Test - We propose a structured framework to evaluate the implications of any changes, focusing on four pillars: Child deprivations and equity; Political Space, Child Rights Advocacy; Partnerships & Fundraising; and Mitigation and Foresight. This recognizes the diverse subregional realities that define our effectiveness. A Red Flag would be triggered when a proposed change would significantly undermine UNICEF's ability to deliver for children and where necessary articulate mitigation measures. A robust case in these areas is even more critical today given the direction of UN80 reforms and what that may mean for the organization. An initial example of what this could look like is attached.

We thank you for taking the time to consider our perspectives and recommendations. Please be assured of our full support during this challenging period.

Our best regards

ECA Representatives 26 May 2025