The United Nations Population Fund (UNFPA): Background and U.S. Funding

Changes from November 10, 2021 to May 6, 2022

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The United Nations Population Fund (UNFPA): ~~November 10, 2021~~May 6, 2022
Background and U.S. Funding
Luisa Blanchfield,
Background
Coordinator
Specialist in International Established in 1969, the United Nations Population Fund (UNFPA) is the primary U.N. Established in 1969, the United Nations Population Fund (UNFPA) is the primary U.N.
entity Relations ~~Specialist in International~~
~~Relations~~
~~entity~~ addressing population issues. Its overall goal is to ensure reproductive rights for addressing population issues. Its overall goal is to ensure reproductive rights for

all, including all, including access to sexual and reproductive health services such as voluntary family access to sexual and reproductive health services such as voluntary family
planning. Headquartered in New York City, UNFPA operates in over 150 countries and planning. Headquartered in New York City, UNFPA operates in over 150 countries and
supports more than Edward J. Collins-Chase
~~supports more than~~ 3,000 staff. It is funded by voluntary contributions from 3,000 staff. It is funded by voluntary contributions from
~~Analyst in Foreign Policy~~

~~governments and other donors, with~~ governments and other donors, with Analyst in Foreign Policy expenses totaling $1.29 billion in 2020. expenses totaling $1.29 billion in 2020.
Thomas Lum
U.S. Policy and Funding
Specialist in Asian Affairs Specialist in Asian Affairs

The United States played a key role in the creation of UNFPA and was initially one of its The United States played a key role in the creation of UNFPA and was initially one of its
largest largest financial donors. In the mid-1980s, President Reagan and some Members of financial donors. In the mid-1980s, President Reagan and some Members of

Congress became concerned that UNFPA’s country program in the People’s Republic of Congress became concerned that UNFPA’s country program in the People’s Republic of
China (PRC) engaged in China (PRC) engaged in or provided funding for abortion or coercive family planning programs. In response, or provided funding for abortion or coercive family planning programs. In response,
Congress enacted what became known as the “Kemp-Kasten” amendment as part of the FY1985 Supplemental Congress enacted what became known as the “Kemp-Kasten” amendment as part of the FY1985 Supplemental
Appropriations Act. The measure stated that no funds “may be made available to any organization or program Appropriations Act. The measure stated that no funds “may be made available to any organization or program
which, as determined by the President, supports or participates in the management of a program of coercive which, as determined by the President, supports or participates in the management of a program of coercive
abortion or involuntary sterilization.” The amendment has continued to be included in annual appropriations laws, abortion or involuntary sterilization.” The amendment has continued to be included in annual appropriations laws,
at times resulting in the withholding of U.S. funding from UNFPA. Since the mid-1990s, Congress has also at times resulting in the withholding of U.S. funding from UNFPA. Since the mid-1990s, Congress has also
required that no U.S. funding to UNFPA may be used for abortions or for UNFPA’s country program in the PRC. required that no U.S. funding to UNFPA may be used for abortions or for UNFPA’s country program in the PRC.
Executive branch determinations under Kemp-Kasten have generally fallen along party lines, with Republicans Executive branch determinations under Kemp-Kasten have generally fallen along party lines, with Republicans
opposing funding and Democrats supporting it. In 2017, President Trump found UNFPA ineligible for U.S. opposing funding and Democrats supporting it. In 2017, President Trump found UNFPA ineligible for U.S.
funding, reversing President Obama’s 2009 decision to fund the organization. In January 2021, President Biden funding, reversing President Obama’s 2009 decision to fund the organization. In January 2021, President Biden
restored funding to UNFPA. For restored funding to UNFPA. For ~~FY2021~~both FY2021 and FY2022, Congress appropriated $32.5 million to the organization, Congress appropriated $32.5 million to the organization. (for a total of $65 million over two years). President Biden’s FY2023 request includes $56 for the organization. (The Biden The Biden
Administration also Administration also ~~announced~~provided additional FY2021 additional FY2021 ~~UNFPA~~ funding for specific funding for specific UNFPA humanitarian and health-related humanitarian and health-related
activities.activities.)
Congressional Debates and Issues
Congressional perspectives on UNFPA are mixed. Critics of the organization generally focus on its activities in Congressional perspectives on UNFPA are mixed. Critics of the organization generally focus on its activities in
China, maintaining that the United States should not fund an organization that supports, either directly or China, maintaining that the United States should not fund an organization that supports, either directly or
indirectly, what they view as the PRC government’s restrictive and coercive family planning policies. They indirectly, what they view as the PRC government’s restrictive and coercive family planning policies. They
suggest that even if UNFPA does not knowingly participate in such activities, its collaboration with PRC entities suggest that even if UNFPA does not knowingly participate in such activities, its collaboration with PRC entities
that implement China’s family planning policies violates Kemp-Kasten. Supporters maintain that UNFPA does that implement China’s family planning policies violates Kemp-Kasten. Supporters maintain that UNFPA does
not engage in coercive family planning activities anywhere (which they note has been confirmed by multiple not engage in coercive family planning activities anywhere (which they note has been confirmed by multiple
investigations, including one by the George W. Bush Administration) and addresses demand for voluntary family investigations, including one by the George W. Bush Administration) and addresses demand for voluntary family
planning services that many view as essential for economic development and planning services that many view as essential for economic development and ~~women’s empowerment~~improving the overall well-being of women. When . When
assessing these and other related issues, Members of the 117th Congress may consider the following: assessing these and other related issues, Members of the 117th Congress may consider the following:
 the  the timing and justification of Administration Kemp-Kasten determinations, specifically , specifically
whether whether executive branch determinations are delayed and/or lack sufficient justification; executive branch determinations are delayed and/or lack sufficient justification;
 possible  possible impacts of U.S. withholdings on U.N. operations, including to what extent, if any, U.S. , including to what extent, if any, U.S.
funding funding cuts may affect the status and/or effectiveness of UNFPA operations; and cuts may affect the status and/or effectiveness of UNFPA operations; and
 the merits of  the merits of bilateral versus multilateral population assistance, with some arguing that , with some arguing that
multilateral ~~multilateral~~ organizations such as UNFPA allow the United States to share costs with other organizations such as UNFPA allow the United States to share costs with other
donors, while others contend that bilateral activities may be better aligned with U.S. priorities. donors, while others contend that bilateral activities may be better aligned with U.S. priorities.

~~Congressional Research Service~~

link to page link to page 1718 The United Nations Population Fund (UNFPA): Background and U.S. Funding

Introduction
The U.N. Population Fund (UNFPA) is the world’s largest provider of sexual and reproductive The U.N. Population Fund (UNFPA) is the world’s largest provider of sexual and reproductive
health programs and the principal U.N. entity addressing global population issues.1 In 2020, the health programs and the principal U.N. entity addressing global population issues.1 In 2020, the
organization provided services in over 150 countries and territories, with expenses totaling $1.29 organization provided services in over 150 countries and territories, with expenses totaling $1.29
billion, drawn from voluntary contributions from over 170 entities, including governments, billion, drawn from voluntary contributions from over 170 entities, including governments,
organizations, and individuals.2 organizations, and individuals.2
Members of Congress have long debated to what extent, if any, the United States should fund Members of Congress have long debated to what extent, if any, the United States should fund
UNFPA. Since the mid-1980s, some lawmakers have been concerned that UNFPA’s country UNFPA. Since the mid-1980s, some lawmakers have been concerned that UNFPA’s country
program in the People’s Republic of China (PRC) has engaged in or provided funding for program in the People’s Republic of China (PRC) has engaged in or provided funding for
abortion or coercive family planning programs. To address these concerns, Congress enacted the abortion or coercive family planning programs. To address these concerns, Congress enacted the
“Kemp-Kasten” amendment in annual Department of State, Foreign Operations, and Related “Kemp-Kasten” amendment in annual Department of State, Foreign Operations, and Related
Programs (SFOPS) appropriations laws beginning in FY1985. The amendment states that no Programs (SFOPS) appropriations laws beginning in FY1985. The amendment states that no
funds may be made available to any organization or program that, as determined by the President, funds may be made available to any organization or program that, as determined by the President,
supports or participates in the management of a program of coercive abortion or involuntary supports or participates in the management of a program of coercive abortion or involuntary
sterilization. Since the mid-1990s, Congress has also required that no U.S. funding to UNFPA sterilization. Since the mid-1990s, Congress has also required that no U.S. funding to UNFPA
may be used for abortions or its program in the PRC. may be used for abortions or its program in the PRC.
Administration determinations over whether to fund UNFPA pursuant to the Kemp-Kasten Administration determinations over whether to fund UNFPA pursuant to the Kemp-Kasten
amendment have generally fallen along party lines, with Republicans opposing UNFPA funding amendment have generally fallen along party lines, with Republicans opposing UNFPA funding
and Democrats supporting it. During the past decade, the Obama Administration funded UNFPA, and Democrats supporting it. During the past decade, the Obama Administration funded UNFPA,
while President Trump declared UNFPA ineligible. President Biden announced in January 2021 while President Trump declared UNFPA ineligible. President Biden announced in January 2021
that he would restore funding to the organization. Congress appropriated $32.5 million to UNFPA that he would restore funding to the organization. Congress appropriated $32.5 million to UNFPA
for FY2021for FY2021 and $32.5 million for FY2022, subject to legislative funding restrictions regarding abortion and UNFPA’s China , subject to legislative funding restrictions regarding abortion and UNFPA’s China
program. For program. For ~~FY2022~~FY2023, President Biden requested $, President Biden requested $~~58.5~~56 million for UNFPA. million for UNFPA.
This report provides an overview of UNFPA activities and U.S. funding debates. It does not aim This report provides an overview of UNFPA activities and U.S. funding debates. It does not aim
to assess the role or status of family planning and reproductive health activities at the global level to assess the role or status of family planning and reproductive health activities at the global level
or in China. For more information on U.S. international family planning efforts and restrictions, or in China. For more information on U.S. international family planning efforts and restrictions,
see the following CRS reports: see the following CRS reports:
 CRS Report R46215,  CRS Report R46215, U.S. Bilateral International Family Planning and
Reproductive Health Programs: Background and Selected Issues, by Sara M. , by Sara M.
Tharakan. Tharakan.
 CRS Report R41360,  CRS Report R41360, Abortion and Family Planning-Related Provisions in U.S.
Foreign Assistance Law and Policy, by Luisa Blanchfield. , by Luisa Blanchfield.
For a brief overview of China’s family planning policies, se For a brief overview of China’s family planning policies, see Appendix A.
~~UNFPA Overview3~~
~~UNFPA is the primary U.N. entity that addresses sexual and reproductive health issues. Since its~~
~~establishment in 1969, the organization transitioned from focusing mainly on statistical collection~~

1 The U.N. system is made up of interconnected components that include specialized agencies, funds and programs, 1 The U.N. system is made up of interconnected components that include specialized agencies, funds and programs,
peacekeeping operations, and the U.N. organization itself. UNFPA, originally called the “U.N. Fund for Population peacekeeping operations, and the U.N. organization itself. UNFPA, originally called the “U.N. Fund for Population
Activities,” is included in the U.N. “funds and programs” group, along with entities such as the U.N. Development Activities,” is included in the U.N. “funds and programs” group, along with entities such as the U.N. Development
Program (UNDP) and U.N. Children’s Fund (UNICEF). For more information, see CRS Report R45206, Program (UNDP) and U.N. Children’s Fund (UNICEF). For more information, see CRS Report R45206, U.S. Funding
to the United Nations System: Overview and Selected Policy Issues, by Luisa Blanchfield. , by Luisa Blanchfield.
2 UNFPA, “Delivering in a Pandemic: Annual Report, 2020.” 2 UNFPA, “Delivering in a Pandemic: Annual Report, 2020.”
~~3 Parts of this section were written by Edward J. Collins Chase, Analyst in Foreign Policy.~~
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UNFPA Overview3 UNFPA is the primary U.N. entity that addresses sexual and reproductive health issues. Since its establishment in 1969, the organization transitioned from focusing mainly on statistical collection and population analysis to providing maternal health and family planning assistance, and population analysis to providing maternal health and family planning assistance,
communication and education, and policy assistance. UNFPA’s work is guided by the communication and education, and policy assistance. UNFPA’s work is guided by the
International Conference on Population and Development (ICPD) Program of Action, which was International Conference on Population and Development (ICPD) Program of Action, which was
agreed to by 179 governments, including the United States, in 1994 in Cairo, Egypt. The ICPD agreed to by 179 governments, including the United States, in 1994 in Cairo, Egypt. The ICPD
represents a notable departure from previous international approaches to population assistance, represents a notable departure from previous international approaches to population assistance,
which often focused on achieving demographic goals and targets. Specifically, the Program of which often focused on achieving demographic goals and targets. Specifically, the Program of
Action recognizes reproductive health and rights, as well as women’s empowerment and gender Action recognizes reproductive health and rights, as well as women’s empowerment and gender
equality, as “cornerstones” of global population and development programs. It also emphasizes equality, as “cornerstones” of global population and development programs. It also emphasizes
that individuals and couples are at the heart of development and have the “basic right to decide that individuals and couples are at the heart of development and have the “basic right to decide
freely and responsibly the number and spacing of their children and to have the information, freely and responsibly the number and spacing of their children and to have the information,
education and means to do so.” The Program of Action further notes that “in no case should education and means to do so.” The Program of Action further notes that “in no case should
abortion be promoted as a method of family planning.”4 (See the abortion be promoted as a method of family planning.”4 (See the text box below for more below for more
information.) information.)
UNFPA Policy on Abortion
UNFPA states that it does not perform, promote, or fund abortion.5 Its policy on abortion centers on two goals, UNFPA states that it does not perform, promote, or fund abortion.5 Its policy on abortion centers on two goals,
approved by the UNFPA Executive Board: (1) “prevent[ing] recourse to abortion by promoting universal access to approved by the UNFPA Executive Board: (1) “prevent[ing] recourse to abortion by promoting universal access to
voluntary family planning” and (2) “dealing with the consequences of unsafe abortions to save women’s lives.”6 voluntary family planning” and (2) “dealing with the consequences of unsafe abortions to save women’s lives.”6
UNFPA asserts that it does not promote changes to the legal status of abortion, which are “decision-making UNFPA asserts that it does not promote changes to the legal status of abortion, which are “decision-making
processes that are the sovereign preserve of countries.”7 Where abortion is legal, it maintains that national health processes that are the sovereign preserve of countries.”7 Where abortion is legal, it maintains that national health
systems should make abortion safe and accessible. Where abortion is il egal, it supports women’s rights to systems should make abortion safe and accessible. Where abortion is il egal, it supports women’s rights to
postabortion care and advises on the treatment of postabortion complications, counseling, and family planning. postabortion care and advises on the treatment of postabortion complications, counseling, and family planning.
Operations and Governance
UNFPA is headquartered in New York City and supports six regionalUNFPA is headquartered in New York City and supports six regional offices, two subregional, two subregional offices, and over , and over
100 country offices worldwide. It has more than 3,000 staff and operates in over 150 countries 100 country offices worldwide. It has more than 3,000 staff and operates in over 150 countries
and territories. UNFPA’s programs and activities focus on achieving three broad goals by 2030: and territories. UNFPA’s programs and activities focus on achieving three broad goals by 2030:
  addressing unmet need for family planning by promoting universal access to by promoting universal access to
quality, integrated sexual and reproductive health services (including quality, integrated sexual and reproductive health services (including
contraceptive distribution, maternal health services, and sexual and reproductive contraceptive distribution, maternal health services, and sexual and reproductive
health education);health education);
~~ preventing maternal death by strengthening health systems, training health~~
~~workers, and improving access to reproductive health; and~~
~~ reducing gender-based violence by working with policymakers, justice systems,~~
~~health and humanitarian partners, and men and boys.8~~

3 Parts of this section were written by Edward J. Collins Chase, Analyst in Foreign Policy. 4 Drawn from the ICPD Program of Action, adopted at the ICPD, Cairo, September 5-13, 1994. 4 Drawn from the ICPD Program of Action, adopted at the ICPD, Cairo, September 5-13, 1994.
5 See UNFPA, “Statement on the United States Decision to Again Withhold Funding from UNFPA,” July 15, 2019. 5 See UNFPA, “Statement on the United States Decision to Again Withhold Funding from UNFPA,” July 15, 2019.
Additionally, in 1984, the UNDP Governing Council (now the Executive Board) affirmed “that it is the policy of the Additionally, in 1984, the UNDP Governing Council (now the Executive Board) affirmed “that it is the policy of the
Fund [UNFPA] ... not to provide assistance for abortions, abortion services or abortion-related equipment and supplies Fund [UNFPA] ... not to provide assistance for abortions, abortion services or abortion-related equipment and supplies
as a method of family planning” (UNDP Governing Council Decision 85/19, part I, June 1985).as a method of family planning” (UNDP Governing Council Decision 85/19, part I, June 1985).
6 UNFPA also opposes “any coercive abortion and the discriminatory practice of prenatal sex selection” (UNFPA, 6 UNFPA also opposes “any coercive abortion and the discriminatory practice of prenatal sex selection” (UNFPA,
“Does UNFPA Support Abortion?” at https://www.unfpa.org/frequently-asked-questions#acronym). “Does UNFPA Support Abortion?” at https://www.unfpa.org/frequently-asked-questions#acronym).
7 Ibid. 7 Ibid.
~~8 U.N. document, *DP/FPA/2017/9, UNFPA Strategic Plan, 2018-2021, July 14, 2017, p. 5.~~
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 preventing maternal death by strengthening health systems, training health workers, and improving access to reproductive health; and  reducing gender-based violence by working with policymakers, justice systems, health and humanitarian partners, and men and boys.8 UNFPA is a subsidiary organ of the U.N. General Assembly and receives policy guidance from UNFPA is a subsidiary organ of the U.N. General Assembly and receives policy guidance from
both the U.N. General Assembly and the U.N. Economic and Social Council (ECOSOC).9 It is both the U.N. General Assembly and the U.N. Economic and Social Council (ECOSOC).9 It is
governed by a 36-member Executive Board, which addresses administrative, financial, and governed by a 36-member Executive Board, which addresses administrative, financial, and
program-related issues. Board members are elected by ECOSOC based on geographic program-related issues. Board members are elected by ECOSOC based on geographic
representation; the United States representation; the United States ~~currently~~ serves as an Executive Board member.10 UNFPA is serves as an Executive Board member.10 UNFPA is
also guided by an Executive Director, currently Dr. Natalia Kanem, who is appointed for a four-also guided by an Executive Director, currently Dr. Natalia Kanem, who is appointed for a four-
year term by the U.N. Secretary-General, in consultation with the Executive Board. year term by the U.N. Secretary-General, in consultation with the Executive Board.
UNFPA participates in the U.N. system through a range of interagency and intergovernmental UNFPA participates in the U.N. system through a range of interagency and intergovernmental
processes. It contributes to General Assembly and ECOSOC debates and is a member of the U.N. processes. It contributes to General Assembly and ECOSOC debates and is a member of the U.N.
Chief Executives Board (the key coordinating mechanisms for the heads of U.N. agencies). It also Chief Executives Board (the key coordinating mechanisms for the heads of U.N. agencies). It also
participates in overarching U.N. initiatives on gender-based violence, implementation of the participates in overarching U.N. initiatives on gender-based violence, implementation of the
Sustainable Development Goals, and Coronavirus Disease 2019 (COVID-19), among others. At Sustainable Development Goals, and Coronavirus Disease 2019 (COVID-19), among others. At
the field level, it works closely with other U.N. entities as part of U.N. Country Teams.11 the field level, it works closely with other U.N. entities as part of U.N. Country Teams.11
Funding and Programs
UNFPA is funded by voluntary contributions from governments, intergovernmental organizations, UNFPA is funded by voluntary contributions from governments, intergovernmental organizations,
the private sector, foundations, and individuals. Donors generally provide two types of funding: the private sector, foundations, and individuals. Donors generally provide two types of funding:
  core funding is unrestricted in its use and is generally used to fund key UNFPA is unrestricted in its use and is generally used to fund key UNFPA
activities and programs; activities and programs;
  noncore (or “extrabudgetary”) funding is earmarked or restricted to specific (or “extrabudgetary”) funding is earmarked or restricted to specific
activities and purposes, such as UNFPA thematic funds or country or issue- activities and purposes, such as UNFPA thematic funds or country or issue-
specific programs.12 specific programs.12
Over the decades, noncore funding has increasingly represented the bulk of UNFPA’s overall Over the decades, noncore funding has increasingly represented the bulk of UNFPA’s overall
budget and expenditures. UNFPA maintains that core contributions reduce transaction costs, budget and expenditures. UNFPA maintains that core contributions reduce transaction costs,
provide financial stability, and allow the organization focus on programs that support its core provide financial stability, and allow the organization focus on programs that support its core
~~mission. At the same time, many donors prefer to provide noncore funding to ensure their~~
~~contributions focus on their policy priorities.13~~
~~In 2020, UNFPA’s expenses totaled $1.28 billion. The organization’s overall revenue was $1.32~~
~~billion, with contributions from 96 governments and other donors; of this amount, over 60%~~
~~($811.2 million) was noncore funding. The largest core donors were Germany ($78.8 million),~~

8 U.N. document, *DP/FPA/2017/9, UNFPA Strategic Plan, 2018-2021, July 14, 2017, p. 5. 9 The 193-member U.N. General Assembly is the plenary body of the United Nations. ECOSOC is the primary U.N. 9 The 193-member U.N. General Assembly is the plenary body of the United Nations. ECOSOC is the primary U.N.
body for addressing and coordinating economic and social issues; it is composed of 54 U.N. member states elected by body for addressing and coordinating economic and social issues; it is composed of 54 U.N. member states elected by
the General Assembly. The United States currently serves as a member of ECOSOC. the General Assembly. The United States currently serves as a member of ECOSOC.
10 The Executive Board, which also governs UNDP and the U.N. Office of Project Services, generally meets for two 10 The Executive Board, which also governs UNDP and the U.N. Office of Project Services, generally meets for two
regular sessions and one annual session per year. It was established by General Assembly resolution 48/162 in 1993. regular sessions and one annual session per year. It was established by General Assembly resolution 48/162 in 1993.
Geographic representation includes 8 member states from Africa, 7 from Asia and the Pacific, 4 from Eastern Europe, 5 Geographic representation includes 8 member states from Africa, 7 from Asia and the Pacific, 4 from Eastern Europe, 5
from Latin America and the Caribbean, and 12 from Western Europe and other countries. Members generally serve from Latin America and the Caribbean, and 12 from Western Europe and other countries. Members generally serve
three-year terms on a rotating basis, with the exception of the Western European and other States group, which three-year terms on a rotating basis, with the exception of the Western European and other States group, which
determined its own internal rotation policy. The Executive Board replaced the Governing Council, which was the main determined its own internal rotation policy. The Executive Board replaced the Governing Council, which was the main
governing body for UNFPA from 1973-1993. governing body for UNFPA from 1973-1993.
11 U.N. Country Teams include all U.N. entities working at the country level on development, humanitarian, and other 11 U.N. Country Teams include all U.N. entities working at the country level on development, humanitarian, and other
programs. UNFPA works closely with UNICEF, UNDP, and the World Health Organization. programs. UNFPA works closely with UNICEF, UNDP, and the World Health Organization.
12 Examples of thematic funds include UNFPA Supplies, the Maternal and Newborn Health Thematic Fund, 12 Examples of thematic funds include UNFPA Supplies, the Maternal and Newborn Health Thematic Fund,
the Humanitarian Action Thematic Fund, and the Population Data Thematic Fund. the Humanitarian Action Thematic Fund, and the Population Data Thematic Fund.
~~13 Drawn from U.N. document DP/FPA/2020/9,~~ ~~United Nations Population Fund Report on the structured funding~~
~~dialogue 2019-2020, July 15, 2020.~~
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The United Nations Population Fund (UNFPA): Background and U.S. Funding

mission. At the same time, many donors prefer to provide noncore funding to ensure their contributions focus on their policy priorities.13 In 2020 (latest available data), UNFPA’s expenses totaled $1.28 billion. The organization’s overall revenue was $1.32 billion, with contributions from 96 governments and other donors; of this amount, over 60% ($811.2 million) was noncore funding. The largest core donors were Germany ($78.8 million), Sweden ($65.9 million), and Norway ($55.1 million). The largest noncore donors were the United Sweden ($65.9 million), and Norway ($55.1 million). The largest noncore donors were the United
Kingdom ($111.55 million), the Netherlands ($52.2 million), and the European Commission Kingdom ($111.55 million), the Netherlands ($52.2 million), and the European Commission
($49.9 million).14 ($49.9 million).14
UNFPA programs are divided into five UNFPA programs are divided into five
primary categories (seprimary categories (see Figure 1).15 Similar to .15 Similar to
Figure 1. UNFPA Worldwide
previous years, the majority of funds in 2020 previous years, the majority of funds in 2020
Program Expenses, 2020
were allocated toward programs related to were allocated toward programs related to
integrated sexual and reproductive health integrated sexual and reproductive health
services ($621 million) and gender equality services ($621 million) and gender equality
activities ($240 million).16 Other key activities ($240 million).16 Other key
programs include analysis on population programs include analysis on population
dynamics/evidence-based policymaking, dynamics/evidence-based policymaking,
improving the overall well-being of improving the overall well-being of
adolescents and youth, and enhancing adolescents and youth, and enhancing
organizational effectiveness.17 organizational effectiveness.17
UNFPA supported programs in over 120 UNFPA supported programs in over 120
countries in 2020, allocating funding to countries in 2020, allocating funding to

developing regions and states experiencing developing regions and states experiencing
Source: Created by CRS. Data from UNFPA. Created by CRS. Data from UNFPA.
conflict and humanitarian crises18 (see conflict and humanitarian crises18 (see Figure
B-1 iin Appendix B). In 2020, the majority of program funding was spent on global interventions In 2020, the majority of program funding was spent on global interventions
and activities (20%), followed by Arab States (19.2%), East and Southern Africa (18.6%), and and activities (20%), followed by Arab States (19.2%), East and Southern Africa (18.6%), and
West and Central Africa (15.9%).19 Roughly 20% of UNFPA’s 2020 program expenses went to West and Central Africa (15.9%).19 Roughly 20% of UNFPA’s 2020 program expenses went to
five countries: Yemen ($71.7 million), Bangladesh ($37 million), Turkey ($33.3 million), Syria five countries: Yemen ($71.7 million), Bangladesh ($37 million), Turkey ($33.3 million), Syria
~~($32.9 million), and the Democratic Republic of Congo ($28.4 million). For UNFPA’s country~~
~~program in China, total expenses were $21 million (see the text box below).20~~
~~UNFPA Country Program in China~~
~~UNFPA has been operating in China since 1979. Initially, its activities focused on improving data col ection and~~
~~analysis. Fol owing the adoption of the ICPD Program of Action in 1994 and the conclusion of UNFPA’s third~~
~~China program cycle (1990-1995), UNFPA and government officials began to discuss significant changes for a~~

13 Drawn from U.N. document DP/FPA/2020/9, United Nations Population Fund Report on the structured funding dialogue 2019-2020, July 15, 2020. 14 A further $271.6 million is donated to noncore resources through the United Nations and International Organization 14 A further $271.6 million is donated to noncore resources through the United Nations and International Organization
transfers. Drawn from UNFPA, “Delivering in a Pandemic: Annual Report, 2020,” p. 15. transfers. Drawn from UNFPA, “Delivering in a Pandemic: Annual Report, 2020,” p. 15.
15 UNFPA Dashboard, “Worldwide Program Expenses, 2020,” at https://www.unfpa.org/data/transparency-portal. 15 UNFPA Dashboard, “Worldwide Program Expenses, 2020,” at https://www.unfpa.org/data/transparency-portal.
16 Examples of sexual and reproductive health services include delivery of contraceptives and reproductive health kits; 16 Examples of sexual and reproductive health services include delivery of contraceptives and reproductive health kits;
HIV and other health-testing services; maternal health services (including antenatal, postnatal and emergency obstetric HIV and other health-testing services; maternal health services (including antenatal, postnatal and emergency obstetric
care); sexual transmitted disease education; and the integration of family planning into broader health services. Gender care); sexual transmitted disease education; and the integration of family planning into broader health services. Gender
equality activities include supporting gender equality-related legislation, policy reform, and development; the collection equality activities include supporting gender equality-related legislation, policy reform, and development; the collection
of sex- and age-disaggregated data; and programs addressing gender-based violence and discrimination. of sex- and age-disaggregated data; and programs addressing gender-based violence and discrimination.
17 Ibid. Programs on adolescents and youth include sexual and reproductive health education service delivery (e.g., HIV 17 Ibid. Programs on adolescents and youth include sexual and reproductive health education service delivery (e.g., HIV
prevention and treatment), youth outreach in marginalized communities, and leadership development. prevention and treatment), youth outreach in marginalized communities, and leadership development.
18 UNFPA works with the government of each country to develop a five-year program, often referred to as a “cycle.” 18 UNFPA works with the government of each country to develop a five-year program, often referred to as a “cycle.”
Each program aims to complement and/or align with broader U.N. development and humanitarian efforts. Each program aims to complement and/or align with broader U.N. development and humanitarian efforts.
19 UNFPA, “Delivering in a Pandemic: Annual Report, 2020,” p. 14. Global activities and interventions aim to 19 UNFPA, “Delivering in a Pandemic: Annual Report, 2020,” p. 14. Global activities and interventions aim to
“complement and catalyze” UNFPA’s regional and country programs. They include increasing global awareness and “complement and catalyze” UNFPA’s regional and country programs. They include increasing global awareness and
coordination of ICPD and SDG implementation, and addressing issues such as gender-based violence, access to coordination of ICPD and SDG implementation, and addressing issues such as gender-based violence, access to
population data, and improving global guidance for sexual and reproductive health needs in crises. For more population data, and improving global guidance for sexual and reproductive health needs in crises. For more
information, see UNFPA, “Global Interventions Action Plan, 2018-2021,” 2018. information, see UNFPA, “Global Interventions Action Plan, 2018-2021,” 2018.
~~20 Ibid., p. 9.~~
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($32.9 million), and the Democratic Republic of Congo ($28.4 million). For UNFPA’s country program in China, total expenses were $21 million (see the text box below).20 UNFPA Country Program in China UNFPA has been operating in China since 1979. Initially, its activities focused on improving data col ection and analysis. Fol owing the adoption of the ICPD Program of Action in 1994 and the conclusion of UNFPA’s third China program cycle (1990-1995), UNFPA and government officials began to discuss significant changes for a fourth agreement that would more closely fol ow the principles set out in Cairo. This included a comprehensive fourth agreement that would more closely fol ow the principles set out in Cairo. This included a comprehensive
approach to sexual and reproductive health, particularly quality of care and advocacy for informed choice. In approach to sexual and reproductive health, particularly quality of care and advocacy for informed choice. In
subsequent program cycles, the China program began incorporating national priorities related to youth, subsequent program cycles, the China program began incorporating national priorities related to youth,
urbanization, aging, responding to gender-based violence, and issues related to “distorted sex ratio at birth” as the urbanization, aging, responding to gender-based violence, and issues related to “distorted sex ratio at birth” as the
result of gender-biased sex selection.21 UNFPA is now implementing the ninth Country Program (2021-2025), result of gender-biased sex selection.21 UNFPA is now implementing the ninth Country Program (2021-2025),
which focuses on sexual and reproductive health (35% of total funding), population dynamics (22%), adolescents which focuses on sexual and reproductive health (35% of total funding), population dynamics (22%), adolescents
and youth (21%), gender equality and women’s empowerment (17%), and program coordination (4%).22 and youth (21%), gender equality and women’s empowerment (17%), and program coordination (4%).22
U.S. Policy: Background and Funding Debates
The United States played a key role in the establishment of UNFPA. From the mid-1960s onward, The United States played a key role in the establishment of UNFPA. From the mid-1960s onward,
Congress expressed increased concern over the impact of rapid population growth on Congress expressed increased concern over the impact of rapid population growth on
development in low-income countries. In 1967, for the first time, Congress amended the Foreign development in low-income countries. In 1967, for the first time, Congress amended the Foreign
Assistance Act of 1961 to specifically authorize and direct funds for population assistance Assistance Act of 1961 to specifically authorize and direct funds for population assistance
programs, urging the United States to channel family planning resources through the United programs, urging the United States to channel family planning resources through the United
Nations and other international organizations.23 Through the late 1970s and early 1980s, the Nations and other international organizations.23 Through the late 1970s and early 1980s, the
United States remained a strong supporter of UNFPA and was one of the largest donors, with United States remained a strong supporter of UNFPA and was one of the largest donors, with
contributions rising from $14.2 million in FY1971 (about 50% of UNFPA’s total budget) to $38.2 contributions rising from $14.2 million in FY1971 (about 50% of UNFPA’s total budget) to $38.2
million in FY1984 (about 28% of the total budget).24 At the same time, reflecting broader million in FY1984 (about 28% of the total budget).24 At the same time, reflecting broader
domestic debates, U.S. policymakers increasingly placed conditions on U.S. funding related to domestic debates, U.S. policymakers increasingly placed conditions on U.S. funding related to
abortion and family planning activities globally, including the Helms Amendment in 1973 and the abortion and family planning activities globally, including the Helms Amendment in 1973 and the
Mexico City Policy in 1984.25 Mexico City Policy in 1984.25
In the mid-1980s, U.S. policy toward UNFPA shifted. In August 1984, governments, including In the mid-1980s, U.S. policy toward UNFPA shifted. In August 1984, governments, including
the United States, met in Mexico City for the 2nd U.N. International Conference on Population. At the United States, met in Mexico City for the 2nd U.N. International Conference on Population. At
the conference, the Reagan Administration announced that no U.S. funding to UNFPA could be the conference, the Reagan Administration announced that no U.S. funding to UNFPA could be
~~used for abortion and called for UNFPA to provide assurances that it was not engaged in, or~~
~~providing funds for, abortion or coercive family planning programs.26 The Administration’s~~
~~concerns focused primarily on UNFPA activities related to China’s coercive family planning~~
~~practices (see the “Debate over UNFPA’s Activities in China” section for more information).~~

20 Ibid., p. 9. 21 UNFPA, “UNFPA China,” at https://www.unfpa.org/data/transparency-portal/unfpa-china, and U.N. document 21 UNFPA, “UNFPA China,” at https://www.unfpa.org/data/transparency-portal/unfpa-china, and U.N. document
DP/FPA/CPD/CHN/9, DP/FPA/CPD/CHN/9, United Nations Population Fund, Country programme document for China, December 21, 2020. , December 21, 2020.
Also see UNFPA, “China Policy Brief: Towards a normal sex ratio at birth in China,” January 2018. Also see UNFPA, “China Policy Brief: Towards a normal sex ratio at birth in China,” January 2018.
22 U.N. document, DP/FPA/CPD/CHN/9, p. 1. 22 U.N. document, DP/FPA/CPD/CHN/9, p. 1.
23 Some Members believed that such earmarks were necessary because the State Department and USAID had given the 23 Some Members believed that such earmarks were necessary because the State Department and USAID had given the
issue inadequate attention. (Senate Committee on Foreign Relations. Foreign Assistance Act of 1967; report to issue inadequate attention. (Senate Committee on Foreign Relations. Foreign Assistance Act of 1967; report to
accompany S.accompany S. 1872. S.Rept. 90-499 August 9, 1967, p. 24.) 1872. S.Rept. 90-499 August 9, 1967, p. 24.)
24 For more detailed historical funding data on UNFPA, see archived CRS Report RL32703, 24 For more detailed historical funding data on UNFPA, see archived CRS Report RL32703, The U.N. Population
Fund: Background and the U.S. Funding Debate, by Luisa Blanchfield., by Luisa Blanchfield.
25 The Helms Amendment 25 The Helms Amendment prohibits the use of U.S. funds to perform abortions or to coerce individuals to practice prohibits the use of U.S. funds to perform abortions or to coerce individuals to practice
abortions (§104(f)(1) of P.L. 87-195). The Mexico City Policy was established by President Reagan at the 1984 Mexico abortions (§104(f)(1) of P.L. 87-195). The Mexico City Policy was established by President Reagan at the 1984 Mexico
City Conference on Population. It stated that NGOs that received population assistance from the United States could City Conference on Population. It stated that NGOs that received population assistance from the United States could
not actively promote or perform abortion as a family planning method in other countries. The policy has since been not actively promote or perform abortion as a family planning method in other countries. The policy has since been
applied and rescinded by Republican and Democratic Administrations. In 2017, President Trump expanded and applied and rescinded by Republican and Democratic Administrations. In 2017, President Trump expanded and
renamed the policy the “Protecting Life in Global Health Assistance” policy. President Biden rescinded the policy in renamed the policy the “Protecting Life in Global Health Assistance” policy. President Biden rescinded the policy in
January 2021. For more information and additional legislative conditions, see CRS Report R41360, January 2021. For more information and additional legislative conditions, see CRS Report R41360, Abortion and
Family Planning-Related Provisions in U.S. Foreign Assistance Law and Policy, by Luisa Blanchfield. , by Luisa Blanchfield.
~~26 “Policy Statement of the United States of America at the United Nations International Conference on Population~~
~~(Second Session), Mexico City, August 13-16, 1984.” The Reagan Administration stated that any unused UNFPA~~
~~funds would be redirected to other non-UNFPA family planning programs.~~
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Congressional Research Service 5 link to page 10 The United Nations Population Fund (UNFPA): Background and U.S. Funding used for abortion and called for UNFPA to provide assurances that it was not engaged in, or providing funds for, abortion or coercive family planning programs.26 The Administration’s concerns focused primarily on UNFPA activities related to China’s coercive family planning practices (see the “Debate over UNFPA’s Activities in China” section for more information). The Kemp-Kasten Amendment
In 1985, reflecting the Reagan Administration’s aforementioned concerns, Congress enacted the In 1985, reflecting the Reagan Administration’s aforementioned concerns, Congress enacted the
Kemp-Kasten amendment as part of the FY1985 Supplemental Appropriations Act.27 The Kemp-Kasten amendment as part of the FY1985 Supplemental Appropriations Act.27 The
measure, introduced by Senator Bob Kasten and Representative Jack Kemp, stated: measure, introduced by Senator Bob Kasten and Representative Jack Kemp, stated:
None of the funds made available under this Act nor any unobligated balances from prior None of the funds made available under this Act nor any unobligated balances from prior
appropriations Acts may be made available to any organization or program which, as appropriations Acts may be made available to any organization or program which, as
determined by the President, supports or participates in the management of a program of determined by the President, supports or participates in the management of a program of
coercive abortion or involuntary sterilization.28 coercive abortion or involuntary sterilization.28
The amendment was created specifically to address concerns related to UNFPA’s country The amendment was created specifically to address concerns related to UNFPA’s country
program in China. Presidents have not made determinations regarding other organizations. program in China. Presidents have not made determinations regarding other organizations.
Congress did not provide details on the meaning of the phrase, “support or participate in the Congress did not provide details on the meaning of the phrase, “support or participate in the
management of a program” in the legislation. However, in the “additional views” section of the management of a program” in the legislation. However, in the “additional views” section of the
House Appropriations Committee Report 99-142, Representative Kemp stated that management House Appropriations Committee Report 99-142, Representative Kemp stated that management
of coercive programs may include providing resources to collect and analyze data necessary to of coercive programs may include providing resources to collect and analyze data necessary to
the enforcement of such a program; training of the individuals who plan, manage, and carry out the enforcement of such a program; training of the individuals who plan, manage, and carry out
such a program; education and publicity about the programs; assistance to the official bodies of such a program; education and publicity about the programs; assistance to the official bodies of
government that are charged with developing and implementing such a program; and other such government that are charged with developing and implementing such a program; and other such
assistance.29 assistance.29
The amendment has been enacted in subsequent annual SFOPS laws since FY1985. Most The amendment has been enacted in subsequent annual SFOPS laws since FY1985. Most
recently, it was included in the recently, it was included in the ~~FY2021~~FY2022 SFOPS SFOPS ~~law.~~Appropriations Act.30 Since FY2019 (and in some previous fiscal Since FY2019 (and in some previous fiscal
years), it has included an additional provision requiring that the President report on how and why years), it has included an additional provision requiring that the President report on how and why
the determination was made within a certain time period: the determination was made within a certain time period:
any determination made under the previous proviso must be made not later than 6 months any determination made under the previous proviso must be made not later than 6 months
after the date of the enactment of this Act, and must be accompanied by the evidence and after the date of the enactment of this Act, and must be accompanied by the evidence and
criteria utilized to make the determination.criteria utilized to make the determination.3031
Other Related Legislative Conditions
In addition to Kemp-Kasten restrictions, since FY1994 Congress has periodically enacted funding In addition to Kemp-Kasten restrictions, since FY1994 Congress has periodically enacted funding
conditions for UNFPA in SFOPS appropriations acts. conditions for UNFPA in SFOPS appropriations acts. ~~Most recently,~~ Section 7057 of the Section 7057 of the ~~FY2021~~
FY2022 SFOPS act SFOPS act requires that 26 “Policy Statement of the United States of America at the United Nations International Conference on Population (Second Session), Mexico City, August 13-16, 1984.” The Reagan Administration stated that any unused UNFPA funds would be redirected to other non-UNFPA family planning programs. ~~requires that~~
~~ funds not made available for UNFPA because of any provision of law shall be~~
~~transferred to the Global Health Programs account and made available for family~~
~~planning, maternal, and reproductive health activities;~~
~~ none of the funds made available may be used for a country program in China;~~
~~ U.S. contributions to UNFPA be kept in an account segregated from other~~
~~UNFPA accounts and not be commingled with other sums; and~~
~~ for UNFPA to receive U.S. funding, it cannot fund abortions.31~~

27 For a legislative history of how the Kemp-Kasten amendment was conceived, see archived CRS Report RL32703, 27 For a legislative history of how the Kemp-Kasten amendment was conceived, see archived CRS Report RL32703,
The U.N. Population Fund: Background and the U.S. Funding Debate, by Luisa Blanchfield. , by Luisa Blanchfield.
28 S.Amdt. 388 to H.R. 2577 [99th], agreed to on June 20, 1985. 28 S.Amdt. 388 to H.R. 2577 [99th], agreed to on June 20, 1985.
29 H. Rept. 99-142 [99th], Appropriations Committee. Supplemental Appropriations, 1985, May 22, 1985, p. 86. 29 H. Rept. 99-142 [99th], Appropriations Committee. Supplemental Appropriations, 1985, May 22, 1985, p. 86.
30 30 ~~Section~~ §7057 of Division K of the Consolidated Appropriations Act, 7057 of Division K of the Consolidated Appropriations Act, ~~2021 (P.L. 16-260), December 27, 2020.~~
~~31 Ibid.~~
2022 (P.L. 117-103), March 15, 2022. 31 Ibid. Congressional Research Service Congressional Research Service

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 funds not made available for UNFPA because of any provision of law shall be transferred to the Global Health Programs account and made available for family planning, maternal, and reproductive health activities;  none of the funds made available may be used for a country program in China;  U.S. contributions to UNFPA be kept in an account segregated from other UNFPA accounts and not be commingled with other sums; and  for UNFPA to receive U.S. funding, it cannot fund abortions.32 Similar to previous years, the FY2022 SFOPS act requires~~Similar to previous years, the FY2021 SFOPS act required~~ a report on dollar-for-dollar a report on dollar-for-dollar
withholding of funds. Specifically, not later than four months after the enactment of the act, the withholding of funds. Specifically, not later than four months after the enactment of the act, the
Secretary of State must submit a report to the committees on appropriations indicating the funds Secretary of State must submit a report to the committees on appropriations indicating the funds
UNFPA is budgeting for a country program in China. If the Secretary’s report states that funds UNFPA is budgeting for a country program in China. If the Secretary’s report states that funds
will be spent on such a program, then the amount of such funds shall be deducted from the funds will be spent on such a program, then the amount of such funds shall be deducted from the funds
made available to UNFPA for the remainder of the fiscal year in which the report is submitted. made available to UNFPA for the remainder of the fiscal year in which the report is submitted.
Debate over UNFPA’s Activities in China
Since Kemp-Kasten was enacted, U.S. policymakers have debated whether or not UNFPA’s Since Kemp-Kasten was enacted, U.S. policymakers have debated whether or not UNFPA’s
program in China supports or participates in the management of a program of coercive abortion program in China supports or participates in the management of a program of coercive abortion
or involuntary sterilization (sor involuntary sterilization (see Appendix A for an overview of China’s family planning for an overview of China’s family planning
policies). Broadly, opponents of UNFPA funding maintain that the United States should not fund policies). Broadly, opponents of UNFPA funding maintain that the United States should not fund
an organization that supports, either directly or indirectly, what they view as the PRC an organization that supports, either directly or indirectly, what they view as the PRC
government’s restrictive and coercive family planning policies. They suggest that even if UNFPA government’s restrictive and coercive family planning policies. They suggest that even if UNFPA
does not directly or knowingly participate in such activities, its partnership and collaboration with does not directly or knowingly participate in such activities, its partnership and collaboration with
PRC entities that implement China’s family planning policies violate the Kemp-Kasten PRC entities that implement China’s family planning policies violate the Kemp-Kasten
amendment. Opponents further argue that U.S. contributions are fungible; any U.S. funding to amendment. Opponents further argue that U.S. contributions are fungible; any U.S. funding to
UNFPA, even if designated for specific purposes, frees up organizational resources for unrelated UNFPA, even if designated for specific purposes, frees up organizational resources for unrelated
(and possibly “objectionable”) purposes.(and possibly “objectionable”) purposes.3233 Some opponents have also questioned whether UNFPA Some opponents have also questioned whether UNFPA
can adequately monitor whether the funding for its China program is being used for designated can adequately monitor whether the funding for its China program is being used for designated
programs and activities. Others have criticized past statements of support made by UNFPA programs and activities. Others have criticized past statements of support made by UNFPA
leaders regarding China’s population programs.leaders regarding China’s population programs.3334
Supporters of U.S. funding note that several onsite investigations, including one by the George W. Supporters of U.S. funding note that several onsite investigations, including one by the George W.
Bush Administration in 2002, found “no evidence that UNFPA knowingly supported or Bush Administration in 2002, found “no evidence that UNFPA knowingly supported or
participated in the management of a program of coercive abortion or involuntary sterilization.”participated in the management of a program of coercive abortion or involuntary sterilization.”3435
They also contend that UNFPA has continually been subject to U.S. funding conditions that They also contend that UNFPA has continually been subject to U.S. funding conditions that
prohibit funding for abortion or require dollar-for-dollar withholdings from UNFPA’s China prohibit funding for abortion or require dollar-for-dollar withholdings from UNFPA’s China
program, emphasizing that UNFPA is the only international organization subject to such program, emphasizing that UNFPA is the only international organization subject to such
~~restrictions. More broadly, some contend that cuts to UNFPA funding as the result of U.S.~~
~~withholdings may force the organization to reduce family planning services that prevent millions~~
~~of abortions each year through education and contraceptive delivery. Some also suggest that~~
~~UNFPA’s efforts to advance the ICPD Program of Action through its country program in China~~
~~may play a role in influencing the government to loosen restrictive family planning policies.35~~

32 32 Ibid. 33 H.Rept. 112-361 [112th], To Prohibit Funding to the United Nations Population Fund, January 17, 2012, p. 7. H.Rept. 112-361 [112th], To Prohibit Funding to the United Nations Population Fund, January 17, 2012, p. 7.
3334 These views are drawn from a range of sources, including but not limited to H.Rept. 112-361 [112th], To Prohibit These views are drawn from a range of sources, including but not limited to H.Rept. 112-361 [112th], To Prohibit
Funding to the United Nations Population Fund,” January 17, 2012; Senate Hearing 107-515, “U.S. Funding for the Funding to the United Nations Population Fund,” January 17, 2012; Senate Hearing 107-515, “U.S. Funding for the
U.N. Population Fund: The Effect on Women’s Lives,” Subcommittee on International Operations and Terrorism, U.N. Population Fund: The Effect on Women’s Lives,” Subcommittee on International Operations and Terrorism,
February 27, 2002; “Determination Regarding the Kemp-Kasten Amendment,” signed by Secretary of State Mike February 27, 2002; “Determination Regarding the Kemp-Kasten Amendment,” signed by Secretary of State Mike
Pompeo, June 16, 2020; Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes Pompeo, June 16, 2020; Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes
Further Funding to UNFPA,” July 18, 2002; and Heritage Foundation, “Budget Book: Eliminate Funding for the Further Funding to UNFPA,” July 18, 2002; and Heritage Foundation, “Budget Book: Eliminate Funding for the
United Nations Population Fund,” February 2015. United Nations Population Fund,” February 2015.
3435 Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes Further Funding to Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes Further Funding to
UNFPA,” July 18, 2002. UNFPA,” July 18, 2002.
~~35 These perspectives are drawn from a range of sources, including but not limited to “Dissenting Views” of H.Rept.~~
~~112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17, 2012; “U.S. Funding for~~
~~the U.N. Population Fund: The Effect on Women’s Lives,” Subcommittee on International Operations and Terrorism,~~
~~February 27, 2002; U.S. Mission to the United Nations, Statement on UNFPA’s 8th Program in China, UNDP/UNFPA~~
~~Executive Board, August 31-September 1, 2015; UNFPA, “UNFPA Hopes Policy Changes Will Lead to Fulfillment of~~
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Congressional Research Service 7 The United Nations Population Fund (UNFPA): Background and U.S. Funding restrictions. More broadly, some contend that U.S. cuts to UNFPA funding may force the organization to reduce family planning services that prevent millions of abortions each year through education and contraceptive delivery. Some also suggest that UNFPA’s efforts to advance the ICPD Program of Action through its country program in China may play a role in influencing the government to loosen restrictive family planning policies.36 Administration Kemp-Kasten Determinations
Over the decades, Administrations have used different methods and criteria to make Kemp-Over the decades, Administrations have used different methods and criteria to make Kemp-
Kasten determinations, ranging from in-depth investigations in China to broader statements of Kasten determinations, ranging from in-depth investigations in China to broader statements of
policy. In general, Administrations appear to agree that UNFPA does notpolicy. In general, Administrations appear to agree that UNFPA does not directly engage in directly engage in
coercive abortions or involuntary sterilization as part of its China program; however, there are coercive abortions or involuntary sterilization as part of its China program; however, there are
varying views as to whether UNFPA violates Kemp-Kasten by operating in the country and/or varying views as to whether UNFPA violates Kemp-Kasten by operating in the country and/or
supporting or partnering with Chinese government agencies. Administration determinations have supporting or partnering with Chinese government agencies. Administration determinations have
generally fallen along party lines, with Republican Presidents withholding funding under Kemp-generally fallen along party lines, with Republican Presidents withholding funding under Kemp-
Kasten and Democratic Presidents supporting UNFPA funding. The below chronology provides Kasten and Democratic Presidents supporting UNFPA funding. The below chronology provides
an overview of Presidents’ Kemp-Kasten justifications and statements since 1985. an overview of Presidents’ Kemp-Kasten justifications and statements since 1985.
Table 1. Chronology of UNFPA Determinations, 1985 to Present
President
(Term Dates)
Kemp-Kasten Justification/Statement
Ronald Reagan Ronald Reagan
The Reagan Administration found UNFPA ineligible for funding under Kemp-Kasten from The Reagan Administration found UNFPA ineligible for funding under Kemp-Kasten from
(Jan. 1981-Jan. 1989) (Jan. 1981-Jan. 1989)
FY1986 to FY1988. FY1986 to FY1988.3637 In letters to congressional leaders, officials cited Representative In letters to congressional leaders, officials cited Representative
Kemp’s aforementioned interpretation (as set out in his additional views in H.Rept. 99-Kemp’s aforementioned interpretation (as set out in his additional views in H.Rept. 99-
142) of what characterized the participation of an organization in a coercive abortion 142) of what characterized the participation of an organization in a coercive abortion
program. It concluded that China’s then-“one-child- per-couple policy has resulted in program. It concluded that China’s then-“one-child- per-couple policy has resulted in
coerced abortion and involuntary sterilization.”coerced abortion and involuntary sterilization.”3738 The determination was challenged by a The determination was challenged by a
nongovernmental organization (NGO) in court, and the determination was upheld.nongovernmental organization (NGO) in court, and the determination was upheld.3839
George H.W. Bush George H.W. Bush
President George H.W. Bush continued to withhold funding to UNFPA under Kemp- President George H.W. Bush continued to withhold funding to UNFPA under Kemp-
(Jan. 1989-Jan. 1993) (Jan. 1989-Jan. 1993)
Kasten from FY1989 to FY1993, appearing to use the same justification as the Reagan Kasten from FY1989 to FY1993, appearing to use the same justification as the Reagan
Administration.Administration.39
~~Wil iam Clinton~~
~~The Clinton Administration issued a determination that UNFPA programs in China did~~
~~(Jan. 1993-Jan. 2001)~~
~~not violate the terms of Kemp-Kasten. The policy reversal, which was in effect from~~
~~FY1994 to FY2001 (with the exception of FY1999),40 was based on what the~~
~~Administration viewed as (1) the ambiguity of the Kemp-Kasten amendment, (2) perceived~~
~~overreliance by the Reagan and Bush Administrations on the statements by Representative~~
~~Kemp in interpreting the provision, and (3) the intent of the organization; specifically, the~~
~~Administration maintained that UNFPA did not “knowingly” or “intentionally” support~~
~~such practices.41~~

40 36 These perspectives are drawn from a range of sources, including but not limited to “Dissenting Views” of H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17, 2012; “U.S. Funding for the U.N. Population Fund: The Effect on Women’s Lives,” Subcommittee on International Operations and Terrorism, February 27, 2002; U.S. Mission to the United Nations, Statement on UNFPA’s 8th Program in China, UNDP/UNFPA Executive Board, August 31-September 1, 2015; UNFPA, “UNFPA Hopes Policy Changes Will Lead to Fulfillment of Chinese Couples’ Rights on Family Size,” October 30, 2015; and Nicole Gaouette, “US aid cuts to UN agency will hurt Chinese Couples’ Rights on Family Size,” October 30, 2015; and Nicole Gaouette, “US aid cuts to UN agency will hurt
vulnerable women and children, critics say,” CNN, July 15, 2019. vulnerable women and children, critics say,” CNN, July 15, 2019.
3637 In FY1985, Congress appropriated $46 million to UNFPA; however, only a portion of these funds ($36 million) was In FY1985, Congress appropriated $46 million to UNFPA; however, only a portion of these funds ($36 million) was
transferred to the organization as U.S. policy and its support for UNFPA shifted. transferred to the organization as U.S. policy and its support for UNFPA shifted.
3738 Letter from USAID Acting Director Peter McPherson to the Senate Appropriations Committee, September 25, 1985. Letter from USAID Acting Director Peter McPherson to the Senate Appropriations Committee, September 25, 1985.
3839 The Population Institute (an NGO) filed suit against the U.S. government in 1986 to block the redirection of UNFPA The Population Institute (an NGO) filed suit against the U.S. government in 1986 to block the redirection of UNFPA
funds and invalidate the determination (Population Institute v. McPherson, 797 F.2d 1062). In August 1986, the U.S. funds and invalidate the determination (Population Institute v. McPherson, 797 F.2d 1062). In August 1986, the U.S.
Court of Appeals for the District of Columbia deferred to the USAID interpretation of Kemp-Kasten because it was a Court of Appeals for the District of Columbia deferred to the USAID interpretation of Kemp-Kasten because it was a
“reasonable reading of an ambiguous provision and did not otherwise conflict with the expressed intention of “reasonable reading of an ambiguous provision and did not otherwise conflict with the expressed intention of
Congress.” Congress.”
3940 “Turmoil in China; U.S. to Withhold U.N. Funds Over China Population Plan,” “Turmoil in China; U.S. to Withhold U.N. Funds Over China Population Plan,” New York Times (Foreign Desk), (Foreign Desk),
Late Edition, June 8, 1989. In November 1989, President Bush vetoed the FY1990 foreign aid appropriations bill (H.R. Late Edition, June 8, 1989. In November 1989, President Bush vetoed the FY1990 foreign aid appropriations bill (H.R.
2939) because it included funding for UNFPA. See “Presidential Veto Message: Bush Vetoes Foreign Aid Over U.N. 2939) because it included funding for UNFPA. See “Presidential Veto Message: Bush Vetoes Foreign Aid Over U.N.
Family Agency,” CQ Almanac 1989, 45th ed., 41-C-42-C, Congressional Quarterly, 1990. Family Agency,” CQ Almanac 1989, 45th ed., 41-C-42-C, Congressional Quarterly, 1990.
~~40 In FY1999, it appears the Clinton Administration did not fund UNFPA as the result of a broader agreement with~~
~~Congress regarding the payment of U.N. arrears. (CSPAN, Transcript of “Helms and Biden on United Nations~~
~~Reform,” November 18, 1999.)~~
~~41 These policy views are drawn from letters of USAID Administrator Brian Atwood to Senator Jesse Helms, dated~~
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~~President~~
~~(Term Dates)~~
~~Kemp-Kasten Justification/Statement~~
Congressional Research Service 8 The United Nations Population Fund (UNFPA): Background and U.S. Funding President (Term Dates) Kemp-Kasten Justification/Statement Wil iam Clinton The Clinton Administration issued a determination that UNFPA programs in China did (Jan. 1993-Jan. 2001) not violate the terms of Kemp-Kasten. The policy reversal, which was in effect from FY1994 to FY2001 (with the exception of FY1999),41 was based on what the Administration viewed as (1) the ambiguity of the Kemp-Kasten amendment, (2) perceived overreliance by the Reagan and Bush Administrations on the statements by Representative Kemp in interpreting the provision, and (3) the intent of the organization; specifically, the Administration maintained that UNFPA did not “knowingly” or “intentionally” support such practices.42 George. W. Bush George. W. Bush
The George W. Bush Administration withheld U.S. funding from UNFPA from FY2002 to The George W. Bush Administration withheld U.S. funding from UNFPA from FY2002 to
(Jan. 2001-Jan. 2009) (Jan. 2001-Jan. 2009)
FY2008 under Kemp-Kasten. As part of the decisionmaking process, the State FY2008 under Kemp-Kasten. As part of the decisionmaking process, the State
Department sent an investigative team to China. The team found no evidence that UNFPA Department sent an investigative team to China. The team found no evidence that UNFPA
had “knowingly supported or participated in the management of a program of coercive had “knowingly supported or participated in the management of a program of coercive
abortion or involuntary sterilization.”abortion or involuntary sterilization.”4243 However, the Administration later determined However, the Administration later determined
that “UNFPA’s support of, and involvement in, China’s population-planning activities that “UNFPA’s support of, and involvement in, China’s population-planning activities
allows the Chinese government to implement more effectively its program of coercive allows the Chinese government to implement more effectively its program of coercive
abortion,” and found it was “not permissible” to fund UNFPA under Kemp-Kasten.abortion,” and found it was “not permissible” to fund UNFPA under Kemp-Kasten.4344
Barack Obama Barack Obama
The Obama Administration issued a statement that restored funding to UNFPA from The Obama Administration issued a statement that restored funding to UNFPA from
(Jan. 2009-Jan. 2017) (Jan. 2009-Jan. 2017)
FY2009 to FY2016. According to Administration officials, the decision highlighted the FY2009 to FY2016. According to Administration officials, the decision highlighted the
President’s “strong commitment” to international family planning, women’s health, and President’s “strong commitment” to international family planning, women’s health, and
global development.global development.4445
Donald Trump Donald Trump
The Trump Administration withheld funding to UNFPA from FY2017 to FY2020. Its April The Trump Administration withheld funding to UNFPA from FY2017 to FY2020. Its April
(Jan. 2017-Jan. 2021) (Jan. 2017-Jan. 2021)
2017 Kemp-Kasten determination stated, “while there is no evidence that UNFPA directly 2017 Kemp-Kasten determination stated, “while there is no evidence that UNFPA directly
engages in coercive abortions or involuntary sterilizations in China, the agency continues engages in coercive abortions or involuntary sterilizations in China, the agency continues
to partner with the NHFPC [National Health and Family Planning Commission] on family to partner with the NHFPC [National Health and Family Planning Commission] on family
planning, and thus can be found to support, or participate in the management of China's planning, and thus can be found to support, or participate in the management of China's
coercive policies for purposes of the Kemp-Kasten Amendment.”coercive policies for purposes of the Kemp-Kasten Amendment.”4546
Joseph Biden Joseph Biden
The Biden Administration The Biden Administration ~~issued a statement announcing that it would resume U.S.~~
~~(Jan. 2021-present)~~
~~funding to UNFPA beginning in FY2021 and “support .. [UNFPA’s]~~ resumed U.S. funding to UNFPA beginning in FY2021 and (Jan. 2021-present) expressed support for UNFPA’s “important work in important work in
preventing gender-based violence globally, including efforts to end female genital preventing gender-based violence globally, including efforts to end female genital

mutilation and cutting, early and forced mutilation and cutting, early and forced marriage, and other practices detrimental to the marriage, and other practices detrimental to the
health of women and girls.”health of women and girls.”46
~~U.S. Funding~~
~~When UNFPA is eligible for funding under the Kemp-Kasten amendment, the United States~~
~~generally provides core and noncore (“extrabudgetary”) contributions to the organization.47~~
~~Congress usually appropriates funding to UNFPA’s core budget through a line item in annual~~
~~SFOPS appropriations bills or in accompanying explanatory statements or reports.48 In FY2021,~~
~~Congress appropriated $32.5 million to UNFPA under the International Organizations &~~
~~Programs (IO&P) account. In June 2021, the Biden Administration stated it was taking the~~

~~August 6 and September 10, 1993.~~
4247 41 In FY1999, it appears the Clinton Administration did not fund UNFPA as the result of a broader agreement with Congress regarding the payment of U.N. arrears. (CSPAN, Transcript of “Helms and Biden on United Nations Reform,” November 18, 1999.) 42 These policy views are drawn from letters of USAID Administrator Brian Atwood to Senator Jesse Helms, dated August 6 and September 10, 1993. 43 Department of State “Report of the China UN Population Fund Independent Assessment Team,” May 29, 2002. Department of State “Report of the China UN Population Fund Independent Assessment Team,” May 29, 2002.
4344 Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes Further Funding to Department of State, “Analysis of determination that Kemp-Kasten Amendment Precludes Further Funding to
UNFPA,” July 18, 2002. UNFPA,” July 18, 2002.
4445 White House, “Statement of President Barack Obama on Rescinding the Mexico City Policy,” January 3, 2009, and White House, “Statement of President Barack Obama on Rescinding the Mexico City Policy,” January 3, 2009, and
“U.S. Government Support for UNFPA,” Department of State Press Statement by Robert Wood, March 24, 2009. “U.S. Government Support for UNFPA,” Department of State Press Statement by Robert Wood, March 24, 2009.
4546 “Determination Regarding the Kemp-Kasten Amendment,” signed by Thomas Shannon, Under-Secretary for “Determination Regarding the Kemp-Kasten Amendment,” signed by Thomas Shannon, Under-Secretary for
Political Affairs, March 20, 2017. The Political Affairs, March 20, 2017. The ~~most recent~~last determination by the Trump Administration was signed by Secretary determination by the Trump Administration was signed by Secretary
of State Mike Pompeo on June 16, 2020. of State Mike Pompeo on June 16, 2020.
4647 “Memorandum on Protecting Women’s Health at Home and Abroad,” The White House, January 28, 2021, and press “Memorandum on Protecting Women’s Health at Home and Abroad,” The White House, January 28, 2021, and press
statement by Antony Blinken, Secretary of State, “Prioritizing Sexual and Reproductive Health and Reproductive statement by Antony Blinken, Secretary of State, “Prioritizing Sexual and Reproductive Health and Reproductive
Rights in U.S. Foreign Policy,” January 28, 2021. Rights in U.S. Foreign Policy,” January 28, 2021.
~~47 U.S. government and UNFPA-reported levels of U.S. funding may not align due to differences between the U.S.~~
~~fiscal year (October 1 to September 30) and the U.N. fiscal year (January 1 to December 31).~~
~~48 There have been some exceptions; for example, during most of the Reagan Administration, Congress did not~~
~~appropriate funding to UNFPA.~~
~~Congressional Research Service~~

9

~~link to page 19 link to page 19 link to page 13 link to page 13 link to page 13~~

~~The United Nations Population Fund (UNFPA): Background and U.S. Funding~~

~~“necessary steps” to ensure UNFPA receives FY2021 funding.49~~ ~~Similar to~~ Congressional Research Service 9 link to page 20 link to page 20 link to page 13 The United Nations Population Fund (UNFPA): Background and U.S. Funding U.S. Funding When UNFPA is eligible for funding under the Kemp-Kasten amendment, the United States generally provides core and noncore (“extrabudgetary”) contributions to the organization.48 Congress usually appropriates funding to UNFPA’s core budget through a line item in annual SFOPS appropriations bills or in accompanying explanatory statements or reports.49 In both FY2021 and FY2022, Congress appropriated $32.5 million in core funding to UNFPA under the International Organizations & Programs (IO&P) account. (In FY2021, UNFPA also received $20 million in IO&P funding through the American Rescue Plan Act [ARPA, P.L. 117-2] for COVID-19 response and recovery efforts.50) Similar to in previous years, previous years,
Congress directed that funds not provided to UNFPA be reprogrammed to other global health Congress directed that funds not provided to UNFPA be reprogrammed to other global health
activities and that if funding is provided, the amount of the UNFPA China Program must be activities and that if funding is provided, the amount of the UNFPA China Program must be
deducted from the U.S. contribution. President Biden’s deducted from the U.S. contribution. President Biden’s ~~FY2022~~FY2023 request for UNFPA funding is request for UNFPA funding is
$56 million. (See$56 million. (See Table B-1 inin Appendix B for UNFPA IO&P funding since FY1985 for UNFPA IO&P funding since FY1985 and Figure
2 below.) below.)
Figure 2. U.S. Core Funding to UNFPA, IO&P Account: FY1985-~~FY2021~~FY2022 (in current U.S. dollars) Appropriated Amount $80.0 $80m REAGAN GHW BUSH CLINTON GW BUSH OBAMA TRUMP BIDEN $46m $0m $220m $0m $332.5m $0m $65m $60.0 $60m $40.0 $40m $20.0 $20m FY17-FY20: FY86-FY93: $0 $0 FY02-FY08: $0 $0 $0.0 $0m 85Y 90 95 00 05 10 15 17 20 22 F YF YF YF YF YF YF YF YF YF Source: Adapted by CRS based on congressional budget justifications, SFOPS legislation, and other documents. Notes: Funding levels represent appropriated amounts in the years in which the United States contributed to UNFPA. In some years, Congress appropriated funding to the UNFPA but none was provided due to Kemp-Kasten determinations or actual amounts were lower due to recessions or other withholdings. Figure does not include U.S. extrabudgetary contributions through other SFOPS accounts (see Table 2). *FY2021 IO&P funding level does not include an additional $20 mil ion in IO&P funding to address COVID-19 through ARPA (P.L. 117-2). 48 U.S. government and UNFPA-reported levels of U.S. funding may not align due to differences between the U.S. fiscal year (October 1 to September 30) and the U.N. fiscal year (January 1 to December 31). 49 There have been some exceptions; for example, during most of the Reagan Administration, Congress did not appropriate funding to UNFPA. 50 §10005 of ARPA authorized $580 million to prevent, prepare for, and respond to COVID-19 through support for the priorities and objectives of the U.N. Global Humanitarian Response Plan COVID–19 through voluntary contributions to international organizations and programs. Also see Department of State, “Fact Sheet: Announcement of ARPA – International Organizations and Programs (IO&P) Funds,” December 21, 2021. According to the department, funding for UNFPA will work to “keep health systems functioning, protect health workers, and mitigate higher rates of maternal and neonatal mortality and morbidity.” Congressional Research Service 10 link to page 14 link to page 14 link to page 13 link to page 20 The United Nations Population Fund (UNFPA): Background and U.S. Funding
~~(in current U.S. dollars)~~

Source: Adapted by CRS based on congressional budget justifications, SFOPS legislation, and other documents.
Notes: Funding levels represent appropriated amounts in the years in which the United States contributed to
~~UNFPA. In some years, Congress appropriated funding to the UNFPA but none was provided due to Kemp-~~
~~Kasten determinations or actual amounts were lower due to recessions or other withholdings. Figure does not~~
~~include U.S. extrabudgetary contributions through other SFOPS accounts (see Table 2).~~
During some years, the United States has also provided noncore (also referred to as During some years, the United States has also provided noncore (also referred to as
“extrabudgetary”) funding for specific UNFPA projects and activities. In general, Congress does “extrabudgetary”) funding for specific UNFPA projects and activities. In general, Congress does
not appropriate such funding in legislation; instead, it appropriates a lump sum to specific SFOPS not appropriate such funding in legislation; instead, it appropriates a lump sum to specific SFOPS
appropriations accounts and the executive branch allocates funding based on U.S. global health, appropriations accounts and the executive branch allocates funding based on U.S. global health,
humanitarian, and other foreign policy priorities. For example, U.S. extrabudgetary funding humanitarian, and other foreign policy priorities. For example, U.S. extrabudgetary funding
increased during the Obama Administration; from FY2014 through FY2016, the United States increased during the Obama Administration; from FY2014 through FY2016, the United States
obligated over $70 million to UNFPA through the State Department’s SFOPS Migration and obligated over $70 million to UNFPA through the State Department’s SFOPS Migration and
Refugee Assistance account administered by the Bureau of Population, Refugees and Migration Refugee Assistance account administered by the Bureau of Population, Refugees and Migration
(see(see Table 2). .
Table 2. U.S. Extrabudgetary Funding to UNFPA, by Account: FY2014-FY2020
(in current U.S. dollars) (in current U.S. dollars)
Account
2014
2015
2016
2017
2018
2019
2020
MRA MRA
9,370,000 9,370,000
15,586,568 15,586,568
19,706,486 19,706,486
5,750,000 5,750,000
0 0
0 0
0 0
ESF ESF
0 0
11,461,193 11,461,193
368,433 368,433
0 0
0 0
0 0
0 0
GHP GHP
680,830 680,830
4,289,348 4,289,348
50,000 50,000
98,163 98,163
0 0
0 0
0 0

~~49 State Department, Office of the Spokesperson, “U.S. Engagement with the U.N. Population Fund,” June 7, 2021.~~
~~Congressional Research Service~~

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~~link to page 14 link to page 13 link to page 19~~ ~~The United Nations Population Fund (UNFPA): Background and U.S. Funding~~

~~Account~~
~~2014~~
~~2015~~
~~2016~~
~~2017~~
~~2018~~
~~2019~~
~~2020~~
IDA IDA
673,650 673,650
750,000 750,000
1,500,000 1,500,000
26,831 26,831
0 0
0 0
0 0
AEECA AEECA
795,625 795,625
0 0
0 0
109,766 109,766
0 0
0 0
0 0
DF DF
0 0
0 0
599,999 599,999
0 0
0 0
0 0
0 0
Total
11,520,105
32,087,109
22,224,918
5,984,760a
0
0
0
Source: USAID Foreign Aid Explorer USAID Foreign Aid Explorer.
Notes: See, accessed April 25, 2022. Notes: FY2021 and FY2022 funding are not included because they are only partially reported. See Figure 2 andand Table B-1 for IO&P funding. Account acronyms: MRA = Migration and Refugee for IO&P funding. Account acronyms: MRA = Migration and Refugee
Assistance; ESF = Economic Support Fund; GHP = Global Health Programs; IDA = International Disaster Assistance; ESF = Economic Support Fund; GHP = Global Health Programs; IDA = International Disaster
Assistance; AEECA = Assistance for Europe, Eurasia, and Central Asia; DF = Democracy Fund. Assistance; AEECA = Assistance for Europe, Eurasia, and Central Asia; DF = Democracy Fund.
a. Funding was allocated prior to President Trump declaring UNFPA ineligible for U.S funding in January 2017. a. Funding was allocated prior to President Trump declaring UNFPA ineligible for U.S funding in January 2017.
The full level and extent of such FY2021 funding is not yet available; however, the Biden The full level and extent of such FY2021 funding is not yet available; however, the Biden
Administration plans to provide extrabudgetary funding for UNFPA programs in the following Administration plans to provide extrabudgetary funding for UNFPA programs in the following
humanitarian contexts: humanitarian contexts:
 $2.6 million in response to the Rohingya refugee crisis;  $2.6 million in response to the Rohingya refugee crisis;
 $1.2 million in response to the needs of crisis-affected women who have fled  $1.2 million in response to the needs of crisis-affected women who have fled
Ethiopia’s Tigray region for Sudan; Ethiopia’s Tigray region for Sudan;
 $1.5 million in humanitarian assistance to Afghanistan, focused on returnees and  $1.5 million in humanitarian assistance to Afghanistan, focused on returnees and
internally displaced persons (IDPs); and internally displaced persons (IDPs); and
 $1.3 million in humanitarian assistance in Sudan for a strengthened response to  $1.3 million in humanitarian assistance in Sudan for a strengthened response to
gender-based violence to support IDPs and vulnerable populations. gender-based violence to support IDPs and vulnerable populations.50
~~In addition, the Administration reports that it will provide $20 million to UNFPA to help~~
~~strengthen the organization’s ongoing COVID-19 response and recovery efforts.51~~
51 The United States also announced $5 million for UNFPA Supplies, which provides contraceptives and maternal health medicines to adolescent girls and women.52 51 State Department, Office of the Spokesperson, “U.S. Engagement with the U.N. Population Fund,” June 7, 2021. 52 State Department, Office of the Spokesperson, “Deputy Secretary Sherman’s Meeting with UNFPA Executive Director Kanem,” November 1, 2021. Congressional Research Service 11 The United Nations Population Fund (UNFPA): Background and U.S. Funding Issues for Congress
Congressional perspectives on UNFPA funding are mixed and, similar to the executive branch, Congressional perspectives on UNFPA funding are mixed and, similar to the executive branch,
often fall along party lines. Over the years, some Members have considered legislation making often fall along party lines. Over the years, some Members have considered legislation making
various changes to the Kemp-Kasten amendment or removing the provision from law altogether. various changes to the Kemp-Kasten amendment or removing the provision from law altogether.
Other proposed legislation has expressed support for or opposition to UNFPA more broadly.Other proposed legislation has expressed support for or opposition to UNFPA more broadly.5253
During the 117th Congress, Members may consider the following recurring issues. During the 117th Congress, Members may consider the following recurring issues.
Timing and Justification of Administration Determinations
In recent years, some policymakers and observers have expressed concern that Administration In recent years, some policymakers and observers have expressed concern that Administration
determinations under the Kemp-Kasten amendment are delayed and/or lack sufficient justification determinations under the Kemp-Kasten amendment are delayed and/or lack sufficient justification
for the determination.for the determination.5354 In an effort to address these issues, since FY2020 annual SFOPS Acts ~~In an effort to address these issues, since FY2020 annual SFOPS Acts~~

~~50 Ibid.~~
~~51 This funding is obligated under FY2021 IO&P funds per Section 10005 of the American Rescue Plan Act of 2021~~
~~(P.L. 117-2).~~
~~52 See, for example, H.R. 3938 [117th], Support UNFPA Funding Act, introduced by Rep. Chrissy Houlahan on June~~
~~16, 2021, and H.R. 2488 [117th], No Taxpayer Funding for the U.N. Population Fund, introduced by Rep. Chip Roy on~~
~~April 13, 2021.~~
~~53 See, for instance, H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January~~
~~17, 2012, p. 3 (on President Obama’s determinations); and Population Action International, “Pompeo Makes Same~~
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11

~~The United Nations Population Fund (UNFPA): Background and U.S. Funding~~

have required that a determination be made within three months and that the executive branch have required that a determination be made within three months and that the executive branch
provide the “evidence and criteria” used to make the determination in its justification.provide the “evidence and criteria” used to make the determination in its justification.5455 Members Members
may continue to monitor if such requirements are proving effective and adequate for addressing may continue to monitor if such requirements are proving effective and adequate for addressing
congressional concerns. congressional concerns.
Impact of U.S. Withholdings on UNFPA Operations
Some experts and policymakers have expressed concern regarding the impact of U.S. Some experts and policymakers have expressed concern regarding the impact of U.S.
withholdings on UNFPA field operations. In 2017, UNFPA officials stated that the impact of U.S. withholdings on UNFPA field operations. In 2017, UNFPA officials stated that the impact of U.S.
funding cuts are “direct,” and that work is often scaled back across countries where UNFPA funding cuts are “direct,” and that work is often scaled back across countries where UNFPA
operates, not just the China programs targeted by the withholding policy.operates, not just the China programs targeted by the withholding policy.5556 Countries with smaller Countries with smaller
budgets (such as those in Latin America and Eastern Europe) are particularly vulnerable, as are budgets (such as those in Latin America and Eastern Europe) are particularly vulnerable, as are
programs that are traditionally supported by the United States (including those in Middle Eastern programs that are traditionally supported by the United States (including those in Middle Eastern
countries responding to refugee crises).countries responding to refugee crises).5657 Recognizing the possibility of ongoing U.S. cuts, Recognizing the possibility of ongoing U.S. cuts,
UNFPA expanded its advocacy and outreach efforts to governments and other donors in 2019 and UNFPA expanded its advocacy and outreach efforts to governments and other donors in 2019 and
was able to maintain its core budget level despite the U.S. withholding (while also falling short of was able to maintain its core budget level despite the U.S. withholding (while also falling short of
other funding targets).other funding targets).5758 More recently, UNFPA faced additional budget shortages from the 53 See, for example, H.R. 3938 [117th], Support UNFPA Funding Act, introduced by Rep. Chrissy Houlahan on June 16, 2021, and H.R. 2488 [117th], No Taxpayer Funding for the U.N. Population Fund, introduced by Rep. Chip Roy on April 13, 2021. 54 See, for instance, H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17, 2012, p. 3 (on President Obama’s determinations); and Population Action International, “Pompeo Makes Same Weak Case for Withholding UNFPA Contribution Again,” July 1, 2020 (on President Trump’s determinations). 55 ~~More recently, UNFPA faced additional budget shortages from the~~
~~United Kingdom’s April 2021 decision to cut 85% of its UNFPA funding as part of broader~~
~~reductions in foreign aid.58~~
~~Bilateral Versus Multilateral Population Assistance Funding~~
~~Congressional debates regarding UNFPA often occur against the backdrop of broader discussions~~
~~regarding the role of multilateral and bilateral funding in U.S. foreign assistance. Some experts~~
~~contend that U.S. funding to multilateral organizations such as UNFPA are a particularly effective~~
~~use of family planning and reproductive health resources. They argue that such cooperation~~
~~allows the U.S. government to share related costs with other governments and organizations, as~~
~~well as to benefit from the convening power and perception of neutrality that U.N. entities such as~~
~~UNFPA often enjoy.59 On the other hand, some argue that the United States should focus on~~
~~bilateral family planning and reproductive health activities (see the text box below), emphasizing~~
~~that bilateral approaches may allow for better oversight and alignment with U.S. priorities.60~~

~~Weak Case for Withholding UNFPA Contribution Again,” July 1, 2020 (on President Trump’s determinations).~~
54 See, for example, Letter to Secretary of State Mike Pompeo from Representatives Jackie Speier, Dianne DeGette, See, for example, Letter to Secretary of State Mike Pompeo from Representatives Jackie Speier, Dianne DeGette,
Barbara Lee, Nita Lowey, and Lois Frankel, July 26, 2019; and H.Rept. 112-361 [112th], To Prohibit Funding to the Barbara Lee, Nita Lowey, and Lois Frankel, July 26, 2019; and H.Rept. 112-361 [112th], To Prohibit Funding to the
United Nations Population Fund, January 17, 2012, p. 3.United Nations Population Fund, January 17, 2012, p. 3.
5556 UNFPA statements drawn from Amy Lieberman, “UNFPA assess extent and impact of US cuts,” Devex.com, April UNFPA statements drawn from Amy Lieberman, “UNFPA assess extent and impact of US cuts,” Devex.com, April
18, 2017; Friends of UNFPA, “Ask an Expert: Sarah Craven, Director of UNFPA’s Washington Office”; Nicole 18, 2017; Friends of UNFPA, “Ask an Expert: Sarah Craven, Director of UNFPA’s Washington Office”; Nicole
Gaouette, “US aid cuts to UN agency will hurt vulnerable women and children, critics say,” CNN, July 15, 2019.Gaouette, “US aid cuts to UN agency will hurt vulnerable women and children, critics say,” CNN, July 15, 2019.
5657 Ibid. Some U.S. policymakers also expressed concern regarding UNFPA’s 2019 decision to close over 100 facilities Ibid. Some U.S. policymakers also expressed concern regarding UNFPA’s 2019 decision to close over 100 facilities
for nursing and pregnant mothers in Yemen due to budget cuts. (Letter to Secretary of State Mike Pompeo from Sens. for nursing and pregnant mothers in Yemen due to budget cuts. (Letter to Secretary of State Mike Pompeo from Sens.
Patty Murray, Jeanne Shaheen, and Jeffrey Merkley, November 12, 2019.) Patty Murray, Jeanne Shaheen, and Jeffrey Merkley, November 12, 2019.)
5758 See Amy Lieberman, “How UNFPA rebounded from US funding cuts,” Devex.com, July 3, 2019, and “UNFPA Is See Amy Lieberman, “How UNFPA rebounded from US funding cuts,” Devex.com, July 3, 2019, and “UNFPA Is
Thriving as It Praises an American Who Kept US Interest Alive,” Thriving as It Praises an American Who Kept US Interest Alive,” PassBlue, September 29, 2020. September 29, 2020.
~~58 UNFPA, “Statement on UK government funding cuts,” April 28, 2021.~~
~~59 See, for example, “Dissenting Views” of H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations~~
~~Population Fund,” January 17, 2012, and Guttmacher Institute, “The Support UNFPA Funding Act: Righting a Policy~~
~~Wrong,” October 17, 2019.~~
~~60 For example, see H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17,~~
~~2012; and Remarks by Rep. Chris Smith, “Continued Coercion: China’s Two-Child Policy Threatens Human Rights~~
~~and Prosperity,” Heritage Foundation, March 8, 2017.~~
~~Congressional Research Service~~

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~~The United Nations Population Fund (UNFPA): Background and U.S. Funding~~
Congressional Research Service 12 The United Nations Population Fund (UNFPA): Background and U.S. Funding United Kingdom’s April 2021 decision to cut 85% of its UNFPA funding as part of broader reductions in foreign aid.59 Bilateral Versus Multilateral Population Assistance Funding Congressional debates regarding UNFPA often occur against the backdrop of broader discussions regarding the role of multilateral and bilateral funding in U.S. foreign assistance. Some experts contend that U.S. funding to multilateral organizations such as UNFPA are a particularly effective use of family planning and reproductive health resources. They argue that such cooperation allows the U.S. government to share related costs with other governments and organizations, as well as to benefit from the convening power and perception of neutrality that U.N. entities such as UNFPA often enjoy.60 On the other hand, some argue that the United States should focus on bilateral family planning and reproductive health activities (see the text box below), emphasizing that bilateral approaches may allow for better oversight and alignment with U.S. priorities.61
U.S. Bilateral Family Planning and Reproductive Health Activities
Since 1965, the United States has been the largest provider of bilateral family planning and reproductive health Since 1965, the United States has been the largest provider of bilateral family planning and reproductive health
(FP/RH) funding worldwide. For the past five fiscal years, Congress has appropriated $575 mil ion annually for (FP/RH) funding worldwide. For the past five fiscal years, Congress has appropriated $575 mil ion annually for
FP/RH programs in nearly 40 countries. These activities, which are administered by USAID, focus on providing FP/RH programs in nearly 40 countries. These activities, which are administered by USAID, focus on providing
access to voluntary family planning information, contraceptives, and services. For more information, see CRS access to voluntary family planning information, contraceptives, and services. For more information, see CRS
Report R46215, Report R46215, U.S. Bilateral International Family Planning and Reproductive Health Programs: Background and Selected
Issues, by Sara M. Tharakan, and CRS In Focus IF11013, , by Sara M. Tharakan, and CRS In Focus IF11013, U.S. Global Family Planning and Reproductive Health Programs:
Funding Trends and Issues for Congress, by Sara M. Tharakan. , by Sara M. Tharakan.
Looking Ahead
When assessing U.S. policy and funding for UNFPA in When assessing U.S. policy and funding for UNFPA in ~~FY2022~~FY2023 and beyond, some Members of and beyond, some Members of
Congress might also consider the following issues. Congress might also consider the following issues.
  U.S. membership on the UNFPA Executive Board. The United States currently The United States currently
serves as a member of the UNFPA Executive Board, which approves the serves as a member of the UNFPA Executive Board, which approves the
organization’s policies and budgets. Congress may monitor executive branch organization’s policies and budgets. Congress may monitor executive branch
priorities in this role related to strategic planning, approval of the UNFPA budget, priorities in this role related to strategic planning, approval of the UNFPA budget,
UNFPA’s country program in China, and other issues as they arise. UNFPA’s country program in China, and other issues as they arise.
  UNFPA and the COVID-19 pandemic. COVID-19 COVID-19 ~~has~~ prompted UNFPA to prompted UNFPA to
reassess and adjust its activities to meet pandemic-related challenges, including reassess and adjust its activities to meet pandemic-related challenges, including
disruptions to family planning and reproductive health services and the secondary disruptions to family planning and reproductive health services and the secondary
impacts on women and girls (such as increased rates of gender-based violence impacts on women and girls (such as increased rates of gender-based violence
and COVID-related disruption to and COVID-related disruption to ~~healthcare~~health care, education, and other social , education, and other social
services). Congress may consider tracking UNFPA’s efforts to incorporate services). Congress may consider tracking UNFPA’s efforts to incorporate
59 UNFPA, “Statement on UK government funding cuts,” April 28, 2021. 60 See, for example, “Dissenting Views” of H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17, 2012, and Guttmacher Institute, “The Support UNFPA Funding Act: Righting a Policy Wrong,” October 17, 2019. 61 For example, see H.Rept. 112-361 [112th], “To Prohibit Funding to the United Nations Population Fund,” January 17, 2012; and Remarks by Rep. Chris Smith, “Continued Coercion: China’s Two-Child Policy Threatens Human Rights and Prosperity,” Heritage Foundation, March 8, 2017. Congressional Research Service 13 The United Nations Population Fund (UNFPA): Background and U.S. Funding COVID-19 interventions into its activities and its role in broader U.N. system-COVID-19 interventions into its activities and its role in broader U.N. system-
wide initiatives to mitigate the short and long-term effects of the pandemic.wide initiatives to mitigate the short and long-term effects of the pandemic.6162
  UNFPA and U.N. reform. Congress has long demonstrated an interest in Congress has long demonstrated an interest in
ensuring that U.N. entities operate as efficiently and effectively as possible. ensuring that U.N. entities operate as efficiently and effectively as possible.
Accordingly, some Members may seek to track UNFPA’s role in implementing Accordingly, some Members may seek to track UNFPA’s role in implementing
U.N. system-wide development reforms adopted by the U.N. General Assembly U.N. system-wide development reforms adopted by the U.N. General Assembly
in 2019.in 2019.6263 Congress may also monitor UNFPA-specific reform activities, such as Congress may also monitor UNFPA-specific reform activities, such as
efforts to improve programming processes, strengthen results-based management, efforts to improve programming processes, strengthen results-based management,
and improve human resources through enhanced staff mobility and recruiting.and improve human resources through enhanced staff mobility and recruiting.6364

6162 The UNFPA Global Response Plan aims to adjust and align UNFPA programs with COVID-19 challenges by The UNFPA Global Response Plan aims to adjust and align UNFPA programs with COVID-19 challenges by
coordinating with partners, monitoring pandemic consequences, and reflecting on changing needs and research. For coordinating with partners, monitoring pandemic consequences, and reflecting on changing needs and research. For
information on broader U.N. efforts, see “United Nations Comprehensive Response to COVID-19 Saving Lives, information on broader U.N. efforts, see “United Nations Comprehensive Response to COVID-19 Saving Lives,
Protecting Societies, Recovering Better,” updated September 2020. Protecting Societies, Recovering Better,” updated September 2020.
6263 In May 2018, the General Assembly adopted resolution 72/279 to “reposition” the U.N. development system by In May 2018, the General Assembly adopted resolution 72/279 to “reposition” the U.N. development system by
strengthening the U.N. resident coordinator (leadership) position within U.N. country teams and improving strengthening the U.N. resident coordinator (leadership) position within U.N. country teams and improving
accountability and communication among U.N. officials and host governments. accountability and communication among U.N. officials and host governments.
6364 Drawn from U.N. document DP/FPA/2021/8, Drawn from U.N. document DP/FPA/2021/8, The UNFPA strategic plan, 2022-2025, July 14, 2021. , July 14, 2021.
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Appendix A. China’s Family Planning ~~Policies64~~Policies65
China’s family planning policies are guided by a national law, the China’s family planning policies are guided by a national law, the Population and Family
Planning Law of the People’s Republic of China,, which first went into effect in 2002 and has which first went into effect in 2002 and has
been amended twice, in 2015 and 2021.been amended twice, in 2015 and 2021.6566 The law has never explicitly condoned nor prohibited The law has never explicitly condoned nor prohibited
coercive sterilization and abortion, and has referred to contraception as the main means of family coercive sterilization and abortion, and has referred to contraception as the main means of family
planning.planning.6667 Article 20 states, “Couples of childbearing age independently choose family planning, Article 20 states, “Couples of childbearing age independently choose family planning,
contraception and birth control measures to prevent and reduce unwanted pregnancies.”contraception and birth control measures to prevent and reduce unwanted pregnancies.”6768 Due to Due to
the vagueness of the law’s provisions and to variations in regulations at the subnational level, its the vagueness of the law’s provisions and to variations in regulations at the subnational level, its
implementation has varied widely across the country. The law has led to many abuses by local implementation has varied widely across the country. The law has led to many abuses by local
officials attempting to enforce its limitations on births, including forced contraceptive use, officials attempting to enforce its limitations on births, including forced contraceptive use,
sterilizations, and abortions, in some cases late-term abortions.sterilizations, and abortions, in some cases late-term abortions.6869 Furthermore, the law has Furthermore, the law has
authorized other penalties for violators of the policy, including heavy fines (“social compensation authorized other penalties for violators of the policy, including heavy fines (“social compensation
fees”) and job-related sanctions, as well as the denial of public health and education benefits to fees”) and job-related sanctions, as well as the denial of public health and education benefits to
offspring beyond the number of children permitted by the law.offspring beyond the number of children permitted by the law.6970
Between 1980 and 2015, the PRC government imposed what became known outside China as a Between 1980 and 2015, the PRC government imposed what became known outside China as a
“One-Child Policy,” mostly in urban districts, to curb population growth. Many couples in rural “One-Child Policy,” mostly in urban districts, to curb population growth. Many couples in rural
areas were allowed to have two children, and ethnic minorities, including ethnic Uyghurs, often areas were allowed to have two children, and ethnic minorities, including ethnic Uyghurs, often
were allowed to have two children per couple in urban districts and three in rural areas. The were allowed to have two children per couple in urban districts and three in rural areas. The
policy led to many human rights abuses, as well as demographic and related problems, especially policy led to many human rights abuses, as well as demographic and related problems, especially
among the Han Chinese majority,among the Han Chinese majority,7071 including sex-selective abortions, a skewed gender ratio including sex-selective abortions, a skewed gender ratio
(more boys than girls),(more boys than girls),7172 and an accelerated aging of the total population. and an accelerated aging of the total population.7273 In response to In response to
demographic trends and popular pressure, in 2015, China’s National People’s Congress (NPC) demographic trends and popular pressure, in 2015, China’s National People’s Congress (NPC)
amended the Population and Family Planning Law to allow all married couples to have two amended the Population and Family Planning Law to allow all married couples to have two
childrenchildren~~, effective January 1, 2016.73~~.74

6465 Written by Thomas Lum, Specialist in Asian Affairs. Written by Thomas Lum, Specialist in Asian Affairs.
6566 Population and Family Planning Law of the People’s Republic of China, August 2021 (Chinese language version at , August 2021 (Chinese language version at
https://flk.npc.gov.cn/detail2.html?ZmY4MDgxODE3YmE5NjVjNDAxN2JiODkyMWQxMzA3N2E%3D). https://flk.npc.gov.cn/detail2.html?ZmY4MDgxODE3YmE5NjVjNDAxN2JiODkyMWQxMzA3N2E%3D).
6667 Article 19, Article 19, Population and Family Planning Law of the People’s Republic of China, 2001, at https://www.cecc.gov/, 2001, at https://www.cecc.gov/
resources/legal-provisions/population-and-family-planning-law-of-the-peoples-republic-of-china; Article 19, resources/legal-provisions/population-and-family-planning-law-of-the-peoples-republic-of-china; Article 19,
Population and Family Planning Law of the People’s Republic of China, amended December 2015, at , amended December 2015, at
http://www.ilo.org/dyn/natlex/docs/ELECTRONIC/76101/79578/F163106897/CHN76101%20Eng.pdf. http://www.ilo.org/dyn/natlex/docs/ELECTRONIC/76101/79578/F163106897/CHN76101%20Eng.pdf.
6768 Population and Family Planning Law of the People’s Republic of China, August 2021. , August 2021.
6869 Calum Macleod, “Forced Abortion in China Prompts Outrage, Calls for Reform,” Calum Macleod, “Forced Abortion in China Prompts Outrage, Calls for Reform,” Washington Post, June 15, 2012. , June 15, 2012.
6970 Russell Goldman, “From One Child to Three: How China’s Family Planning Policies Have Evolved,” Russell Goldman, “From One Child to Three: How China’s Family Planning Policies Have Evolved,” The New York
Times, May 31, 2021; Sui-Lee Wee, “After One-Child Policy, Outrage at China’s Offer to Remove IUDs, , May 31, 2021; Sui-Lee Wee, “After One-Child Policy, Outrage at China’s Offer to Remove IUDs, The New
York Times, January 7, 2017; “How China’s One-Child Policy Led To Forced Abortions, 30 Million Bachelors,” , January 7, 2017; “How China’s One-Child Policy Led To Forced Abortions, 30 Million Bachelors,” NPR, ,
February 1, 2016; Maya Wang, “Dispatches: Ending the One-Child Policy Does Not Equal Reproductive Freedom in February 1, 2016; Maya Wang, “Dispatches: Ending the One-Child Policy Does Not Equal Reproductive Freedom in
China,” Human Rights Watch, October 29, 2015. China,” Human Rights Watch, October 29, 2015.
7071 Han Chinese, the majority ethnic group in China, constitute about 91.5% of the country’s population. Han Chinese, the majority ethnic group in China, constitute about 91.5% of the country’s population.
7172 China reports a male-to-female ratio of 105 to 100. “China’s Latest Census Reports More Balanced Gender Ratio,” China reports a male-to-female ratio of 105 to 100. “China’s Latest Census Reports More Balanced Gender Ratio,”
Xinhua, May 11, 2021. , May 11, 2021.
7273 The number of women of childbearing age in China began to fall in the mid-2010s. Mu Guangzong, “China’s The number of women of childbearing age in China began to fall in the mid-2010s. Mu Guangzong, “China’s
Worrying Decline in Birth Rate: China Daily Columnist,” Worrying Decline in Birth Rate: China Daily Columnist,” The Straits Times, January 24, 2018. , January 24, 2018.
7374 The law allowed for some variations by province. Wang Xiaodong, “Beijing Residents Face New Fines for Exceeding Quota,” China Daily, January 8, 2018; Laney Zhang, “China: Two-Child Policy Becomes Law,” January 8, 2016, at China: Two-Child Policy Becomes Laney Zhang, “China: Two-Child Policy Becomes Law,” January 8, 2016, at China: Two-Child Policy Becomes
Law | Library of Congress (loc.gov); Josh Chin, “Chinese Scholars Call for Revision of One-Child Policy,” Law | Library of Congress (loc.gov); Josh Chin, “Chinese Scholars Call for Revision of One-Child Policy,” The Wall
Street Journal, July 6, 2012. , July 6, 2012.
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Despite the general relaxation of population control measures since 2016, birth rates in China Despite the general relaxation of population control measures since 2016, birth rates in China
have continued to decline, as many couples prefer to have one child, largely for economic have continued to decline, as many couples prefer to have one child, largely for economic
reasons.reasons.7475 In 2021, the NPC amended the Population and Family Planning Law for a third time, In 2021, the NPC amended the Population and Family Planning Law for a third time,
allowingallowing all married couples to have up to three children couples to have up to three children, and abolishing the social compensation and abolishing the social compensation ~~fee~~fees or fines assessed assessed
on couples having children beyond the legal limit. As in the past, the law leaves the details of on couples having children beyond the legal limit. As in the past, the law leaves the details of
implementation to subnational governments.implementation to subnational governments.7576 Overall, coercive family planning practices in Overall, coercive family planning practices in
China have declined in recent years, although forced terminations of pregnancies still were China have declined in recent years, although forced terminations of pregnancies still were
reported in some PRC provinces in reported in some PRC provinces in ~~2020.76~~2021.77
In 2017, the PRC government ordered a crackdown on ethnic Uyghur Muslims in the Xinjiang In 2017, the PRC government ordered a crackdown on ethnic Uyghur Muslims in the Xinjiang
Uyghur Autonomous Region who had violated China’s family planning guidelines, which had Uyghur Autonomous Region who had violated China’s family planning guidelines, which had
been not always been strictly enforced in the region. The government detained many Uyghur and been not always been strictly enforced in the region. The government detained many Uyghur and
other Muslim minority women in “reeducation centers” for violating family planning laws, other Muslim minority women in “reeducation centers” for violating family planning laws,
calling the violations a sign of religious extremism.calling the violations a sign of religious extremism.7778 PRC official documents from 2019 PRC official documents from 2019
reportedly revealed plans for a campaign of mass sterilization of women in rural Xinjiang aimed reportedly revealed plans for a campaign of mass sterilization of women in rural Xinjiang aimed
primarily at Uyghur women with three or more children, as well as some with two children. primarily at Uyghur women with three or more children, as well as some with two children.
Xinjiang authorities reportedly also have carried out forced abortions among Uyghurs.Xinjiang authorities reportedly also have carried out forced abortions among Uyghurs.7879 The The
Department of State included coercive sterilizations and abortions performed on Uyghur women Department of State included coercive sterilizations and abortions performed on Uyghur women
in its January 2021 determination that China is committing genocide.in its January 2021 determination that China is committing genocide.7980

7475 “China’s Births May Fall Below 10 Million Annually in Next Five Years – Expert Quoted,” “China’s Births May Fall Below 10 Million Annually in Next Five Years – Expert Quoted,” Reuters, April 19, 2021. , April 19, 2021.
7576 Laney Zhang, “China: Three-Child Policy Becomes Law, Social Maintenance Fee Abolished,” at China: Three-Child Laney Zhang, “China: Three-Child Policy Becomes Law, Social Maintenance Fee Abolished,” at China: Three-Child
Policy Becomes Law, Social Maintenance Fee Abolished | Library of Congress (loc.gov); Jessie Yeung, Steve George, Policy Becomes Law, Social Maintenance Fee Abolished | Library of Congress (loc.gov); Jessie Yeung, Steve George,
“China Wants Families to Have Three Children. But Many Women Aren’t Convinced,” “China Wants Families to Have Three Children. But Many Women Aren’t Convinced,” CNN, August 25, 2021. , August 25, 2021.
7677 Department of State, Department of State, ~~2020~~2021 Country Reports on Human Rights Practices – China, , ~~March 30, 2021.~~
77April 12, 2022. 78 Adrian Zenz, “Sterilizations, IUDs, and Mandatory Birth Control: The CCP’s Campaign to Suppress Uyghur Adrian Zenz, “Sterilizations, IUDs, and Mandatory Birth Control: The CCP’s Campaign to Suppress Uyghur
Birthrates in Xinjiang,” Jamestown Foundation, June 2020; “China Cuts Uighur Births with IUDs, Abortion, Birthrates in Xinjiang,” Jamestown Foundation, June 2020; “China Cuts Uighur Births with IUDs, Abortion,
Sterilization,” Sterilization,” Associated Press, June 29, 2020. , June 29, 2020.
7879 Ibid. Ibid.
7980 Department of State, “Determination of the Secretary of State on Atrocities in Xinjiang,” January 19, 2021; “Report: Department of State, “Determination of the Secretary of State on Atrocities in Xinjiang,” January 19, 2021; “Report:
China’s Birth-Control Policy on Uyghur Women May Amount To ‘Genocide,’” China’s Birth-Control Policy on Uyghur Women May Amount To ‘Genocide,’” Radio Free Europe/Radio Liberty, ,
June 29, 2020. For further information on the Uyghurs, see CRS In Focus IF10281, June 29, 2020. For further information on the Uyghurs, see CRS In Focus IF10281, China Primer: Uyghurs, by , by
Thomas Lum and Michael A. Weber. Thomas Lum and Michael A. Weber.
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The United Nations Population Fund (UNFPA): Background and U.S. Funding

Appendix B. Additional Information
Figure B-1 illustrates UNFPA country programs by location in 2020. Counties with darker values illustrates UNFPA country programs by location in 2020. Counties with darker values
have higher expenses (the highest is Yemen at $71.7 million), while those with lighter values have have higher expenses (the highest is Yemen at $71.7 million), while those with lighter values have
lower expenses (the lowest is Chile at $200,000). lower expenses (the lowest is Chile at $200,000).
Figure B-1. UNFPA Country Program Locations and Expenses, 2020

Source: UNFPA Data Transparency Portal. UNFPA Data Transparency Portal.
Table B-1 lists UNFPA appropriations and executive branch determinations since FY1985, the lists UNFPA appropriations and executive branch determinations since FY1985, the
first year Kemp-Kasten first became law. In some years, executive branch determinations were first year Kemp-Kasten first became law. In some years, executive branch determinations were
made in the middle of the fiscal year (for example in January when a new President took office). made in the middle of the fiscal year (for example in January when a new President took office).
This affected actual UNFPA funding amounts if funds had already been obligated under the This affected actual UNFPA funding amounts if funds had already been obligated under the
previous Administration. previous Administration.
Table B-1. UNFPA Appropriations and Executive Branch Determinations:
FY1985 to Present
Determination
Appropriated
Fiscal Year
President
Yes/No Funding)
Amounta
1985 1985
Reagan Reagan
Yes Yes
$46,000,000 $46,000,000
1986 1986
Reagan Reagan
No No
$0 $0
1987 1987
Reagan Reagan
No No
$0 $0
1988 1988
Reagan Reagan
No No
$0 $0
1989 1989
George H.W. Bush George H.W. Bush
No No
$0 $0
1990 1990
George H.W. Bush George H.W. Bush
No No
$0 $0
1991 1991
George H.W. Bush George H.W. Bush
No No
$0 $0
1992 1992
George H.W. Bush George H.W. Bush
No No
$0 $0
1993 1993
George H.W. Bush George H.W. Bush
No No
$0 $0
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Determination
Appropriated
Fiscal Year
President
Yes/No Funding)
Amounta
1994 1994
Clinton Clinton
Yes Yes
$40,000,000 $40,000,000
1995 1995
Clinton Clinton
Yes Yes
$50,000,000 $50,000,000
1996 1996
Clinton Clinton
Yes Yes
$30,000,000 $30,000,000
1997 1997
Clinton Clinton
Yes Yes
$25,000,000 $25,000,000
1998 1998
Clinton Clinton
Yes Yes
$25,000,000 $25,000,000
199 1999b
Clinton Clinton
No No
$0 $0
2000 2000
Clinton Clinton
Yes Yes
$25,000,000 $25,000,000
2001 2001
Clinton Clinton
Yes Yes
$25,000,000 $25,000,000
2002 2002
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2003 2003
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2004 2004
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2005 2005
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2006 2006
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2007 2007
George W. Bush George W. Bush
No No
$34,000,000 $34,000,000
2008 2008
George W. Bush George W. Bush
No No
$40,000,000 $40,000,000
2009 2009
Obama Obama
Yes Yes
$50,000,000 $50,000,000
2010 2010
Obama Obama
Yes Yes
$55,000,000 $55,000,000
2011 2011
Obama Obama
Yes Yes
$55,000,000 $55,000,000
2012 2012
Obama Obama
Yes Yes
$35,000,000 $35,000,000
2013 2013
Obama Obama
Yes Yes
$35,000,000 $35,000,000
2014 2014
Obama Obama
Yes Yes
$35,000,000 $35,000,000
2015 2015
Obama Obama
Yes Yes
$35,000,000 $35,000,000
2016 2016
Obama Obama
Yes Yes
$32,500,000 $32,500,000
2017 2017
Trump Trump
No No
$32,500,000 $32,500,000
2018 2018
Trump Trump
No No
$32,500,000 $32,500,000
2019 2019
Trump Trump
No No
$32,500,000 $32,500,000
2020 2020
Trump Trump
No No
$32,500,000 $32,500,000
2021 2021
Biden Biden
Yes Yes
$32,500,000 $32,500,000
2022 Biden Yes $32,500,000 Source: Annual State-Foreign Operations appropriations bil s and executive branch documents and statements. Annual State-Foreign Operations appropriations bil s and executive branch documents and statements.
a. Amounts represent those specifically appropriated by Congress and do not include rescissions or other a. Amounts represent those specifically appropriated by Congress and do not include rescissions or other
withholdings. Executive branch allocations earmarked for specific projects are not included. withholdings. Executive branch allocations earmarked for specific projects are not included.
b. In 1997, the controversy over whether to fund UNFPA briefly subsided when UNFPA’s program in China b. In 1997, the controversy over whether to fund UNFPA briefly subsided when UNFPA’s program in China
expired and new activities did not resume immediately. Nevertheless, despite opposition from the United expired and new activities did not resume immediately. Nevertheless, despite opposition from the United
States, UNFPA reestablished a program in China. In FY1999, the United States did not fund UNFPA as the States, UNFPA reestablished a program in China. In FY1999, the United States did not fund UNFPA as the
result of a broader agreement between the President and Congress on the payment of U.N. arrears. result of a broader agreement between the President and Congress on the payment of U.N. arrears.
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Author Information

Luisa Blanchfield, Coordinator Luisa Blanchfield, Coordinator
Thomas Lum Thomas Lum
Specialist in International Relations Specialist in International Relations
Specialist in Asian Affairs Specialist in Asian Affairs

Edward J. Collins-Chase Edward J. Collins-Chase

Analyst in Foreign Policy Analyst in Foreign Policy

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