United Nations Peacekeeping:
Issues for Congress
Marjorie Ann Browne
Specialist in International Relations
August 13, 2010
Congressional Research Service
7-5700
www.crs.gov
RL33700
CRS Report for Congress
P
repared for Members and Committees of Congress
United Nations Peacekeeping: Issues for Congress
Summary
A major issue facing the United Nations, the United States, and the 111th Congress is the extent to
which the United Nations has the capacity to restore or keep the peace in the changing world
environment. Associated with this issue is the expressed need for a reliable source of funding and
other resources for peacekeeping and improved efficiencies of operation.
For the United States, major congressional considerations on U.N. peacekeeping stem from
executive branch commitments made in the U.N. Security Council. The concern with these
commitments, made through votes in the Council, is the extent to which they bind the United
States to fund and to participate in some way in an operation. This includes placing U.S. military
personnel under the control of foreign commanders.
Peacekeeping has come to constitute more than just the placement of military forces into a cease-
fire situation with the consent of all the parties. Military peacekeepers may be disarming or
seizing weapons, aggressively protecting humanitarian assistance, and clearing land mines.
Peacekeeping operations also now involve more non-military personnel and tasks such as
maintaining law and order, election monitoring, and human rights monitoring.
Proposals for strengthening U.N. peacekeeping and other aspects of U.N. peace and security
capacities have been adopted in the United Nations, by the U.S. executive branch, and by
Congress. Some are being implemented. Most authorities have agreed that if the United Nations
is to be responsive to 21st century world challenges, both U.N. member states and the appropriate
U.N. organs will have to continue to improve U.N. structures and procedures in the peace and
security area.
This report serves as a tracking report for action by Congress on United Nations peacekeeping.
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Contents
Most Recent Developments......................................................................................................... 1
Introduction ................................................................................................................................ 1
Current Funding Situation ........................................................................................................... 2
Fiscal Year 2011.................................................................................................................... 2
Fiscal Year 2010.................................................................................................................... 3
Fiscal Year 2009.................................................................................................................... 5
Supplemental Appropriations Act, 2009 .......................................................................... 7
Fiscal Year 2008.................................................................................................................... 8
Fiscal Year 2007 Supplemental.............................................................................................. 9
Fiscal Year 2007.................................................................................................................. 10
U.N. Peacekeeping: Funding Assessed Contributions—FY2009-FY2011 ............................ 11
The Peacekeeping Assessment Cap ..................................................................................... 12
Notifications to Congress .................................................................................................... 15
Basic Information ..................................................................................................................... 15
U.S. Provision of Personnel................................................................................................. 18
Other Peacekeeping Issues .................................................................................................. 19
A Peacekeeping Response to International Humanitarian Distress ................................. 19
The Role of U.N. Peacekeeping in Monitoring Elections ............................................... 20
U.S. Financing for U.N. Peacekeeping ................................................................................ 21
U.N. Proposals for Strengthening Peacekeeping ........................................................................ 22
Agenda for Peace (1992)..................................................................................................... 22
Brahimi Panel Report (2000)............................................................................................... 23
Prince Zeid Report (2005)................................................................................................... 24
Reorganization and Restructuring (2007)............................................................................. 27
The United States and Peacekeeping Proposals.......................................................................... 28
Congress and United Nations Peacekeeping: 1991-2006............................................................ 30
Overview ............................................................................................................................ 30
Tables
Table 1. U.N. Peacekeeping-Assessed Contributions FY2009 Allocations, FY2010
Enacted, and FY2011 Request ................................................................................................ 11
Table 2. U.N. Peacekeeping Assessment Levels for the United States, Calendar Years
1992-2010.............................................................................................................................. 12
Table 3. U.S. Military Personnel Under U.N. Control as of November 30, 1995......................... 18
Table 4. U.S. Personnel Under U.N. Control as of June 30, 2010 ............................................... 19
Table 5. U.S. Contributions to U.N. Peacekeeping as Requested and Enacted, FY1988-
FY2006.................................................................................................................................. 30
Table C-1. United Nations Peacekeeping over the Years: Statistical Data for Comparative
Analysis, 1978-2010 .............................................................................................................. 42
Table D-1. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year
2008 ...................................................................................................................................... 44
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Appendixes
Appendix A. U.N. Peacekeeping Operations: A Chronological List........................................... 37
Appendix B. U.N. Peacekeeping Operations: Numbers Created Annually, 1948-2010................ 40
Appendix C. United Nations Peacekeeping over the Years: Statistical Data for
Comparative Analysis, 1978-2010.......................................................................................... 42
Appendix D. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar
Year 2008 .............................................................................................................................. 44
Appendix E. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar
Year 2007 .............................................................................................................................. 46
Appendix F. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year
2006 ...................................................................................................................................... 48
Appendix G. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar Year
2005 ...................................................................................................................................... 50
Appendix H. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar
Year 2004 .............................................................................................................................. 52
Contacts
Author Contact Information ...................................................................................................... 54
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Most Recent Developments
On February 1, 2010, the President, in his budget for FY2011, requested $2,182,300,000 for U.S.
contributions to U.N. peacekeeping operation assessed accounts in the Contributions to
International Peacekeeping Activities (CIPA) account, Department of State. That compares with
$2,125,000,000 enacted for FY2010. The request also included language amending the
assessment cap on U.S. contributions to U.N. peacekeeping operations made during calendar year
2011 to 27.5%. On June 30, 2010, the House Subcommittee on State, Foreign Operations, and
Related Programs reported its recommendations to the full House Appropriations Committee.
They included $2,126,382,000 for the CIPA account. The full committee has not reported a bill.
On July 29, 20010, the Senate Appropriations Committee reported S. 3676, the Department of
State, Foreign Operations, and Related Programs Appropriations Bill, 2011, recommending
$2,126,382,000 for the CIPA account.
The President’s March 24, 2010, FY2010 supplemental request for funding costs associated with
relief and reconstruction support for Haiti following the January 12, 2010, earthquake included
$96,500,000 to finance additional U.S. assessed contributions to the U.N. Stabilization Mission in
Haiti (MINUSTAH), the U.N. peacekeeping operation in Haiti, through the CIPA account. On
July 29, 2010, the President signed H.R. 4899, Supplemental Appropriations Act, 2010 (P.L. 111-
212), with the funding for U.S. assessed contributions to MINUSTAH intact.
Introduction
The role of the United Nations in facilitating dispute settlement and establishing peacekeeping
operations to monitor cease-fires and participate in other duties as assigned by the U.N. Security
Council increased markedly in the 1990s. Between April 1988 and April 1994, a total of 20
peacekeeping operations were set up, involving 16 different situations. Since May 1994, however,
the pace of Council creation of new U.N. controlled peacekeeping operations dropped noticeably.
This reduction resulted, in part, from the U.S. decision, in Presidential Decision Directive 25
(PDD 25), signed May 1994, to follow strict criteria for determining its support for an operation.1
This U.S. decision was accompanied by a Security Council statement adopting similar criteria.
If the trends between 1978 and 2009 (see Appendix C) and situations at the start of 1988 and in
more recent years are compared, the following trends emerge:
• Numbers of Operations: As of the end of 1978, six U.N. peacekeeping
operations existed. No operations were created between the start of UNIFIL in
March 1978 and April 1988. The number of operations increased from 8 in 1970
to 17 in 1993 and 1994, 16 in 1995 and 1996, and 17 again in 1999. Since 2000,
the number of operations as of the end of the year has generally fluctuated
between 15 and 16. As of December 31, 2009, there were 15 U.N. peacekeeping
operations. Five of the six operations in existence in 1978 still exist.
• U.N. Costs: For calendar year 1978, U.N. peacekeeping expenditures totaled
$202 million and were up to $635 million for 1989. This went up to $1.7 billion
1 See text at http://www.fas.org/irp/offdocs/pdd25.htm.
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for 1992 and to $3 billion annually for 1993, 1994, and 1995. The total for 1996
went down to $1.4 billion and below $1 billion for 1998. Since 2000, U.N.
peacekeeping costs were, annually, over $2 billion, reaching $3.6 billion in 2004
and $4.7 billion for 2005.2
• U.N. Personnel: As of December 31, 1978, personnel in U.N. peacekeeping
operations totaled 16,700. The highest number during 1993 was 78,500, but the
total was down to 68,900 in 1995. In 1996, the highest number was down to
29,100 and 14,600 in 1998. For 2000, the highest number was 38,500 and
climbing. For 2004, 64,700 was the highest number and at the end of 2007, the
number in U.N. peacekeeping operations totaled 84,309. As of June 30, 2010, the
number of uniformed personnel in U.N. peacekeeping operations totaled
100,645.
• U.S. contributions for assessed peacekeeping accounts: For CY1988, U.S.
assessed contributions totaled $36.7 million. CY1994 U.S. payments to U.N.
peacekeeping accounts were $991.4 million; and $359 million in CY1996. U.S.
assessed contributions totaled $518.6 million in CY2000 but were up to $1.3
billion, including arrears payments, in CY2001. U.S. contributions were $1.1
billion in CY2005, $1.1 billion in CY2006, and $2.26 billion in CY2008.
• U.S. Personnel in U.N. Peacekeeping: When 1988 started, the U.S. military
participated, as observers, in one U.N. operation, the U.N. Truce Supervision
Organization in Palestine (36 officers). As of December 31, 1995, a total of 2,851
U.S. military personnel served under U.N. control in seven operations. As of
December 31, 2003, 518 U.S. personnel served in seven operations and as of the
end of 2007, 316 U.S. personnel served in seven operations. By June 30, 2010,
the number of U.S. personnel serving in seven operations had dropped to 89.
Current Funding Situation
Fiscal Year 2011
On February 1, 2010, President Obama requested, for FY2011, $2,182,300,000 to pay U.S.
assessed contributions to U.N. peacekeeping operations, in the State Department’s Contributions
to International Peacekeeping Activities (CIPA) account. It compares with $2,125,000,000
enacted for FY2010.3 The FY2011 request included $37,972,000 for the two international war
crimes tribunals (Yugoslavia and Rwanda) that are not peacekeeping operations. The request also
included language amending the assessment cap on contributions to U.N. peacekeeping
operations made during calendar year 2011 to 27.5%.4
2 These figures are taken from Peacekeeping Operations Expenditures: 1947-2005, a table compiled by Michael
Renner (Senior Researcher, Worldwatch Institute and Global Policy Forum), found at http://www.globalpolicy.org/
finance/tables/pko/expend.htm.
3 The FY2011 request is $57,300,000 over the amount enacted for FY2010.
4 The President’s FY2011 request included $285,950,000 for the Peacekeeping Operations (PKO) account, under
Foreign Operations. This compares with $331,500,000 estimated for FY2010. The PKO account funds U.S.
contributions to the non-U.N. peacekeeping operation, the Multilateral Force and Observers in the Sinai, and supports
the strengthening of peacekeeping and peace operation efforts of other countries.
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On June 30, 2010, the House Subcommittee on State, Foreign Operations, and Related Programs
reported its recommendations to the full House Appropriations Committee. They included
$2,126,382,000 for the CIPA account. The full committee has not reported a bill. On July 29,
2010, the Senate Appropriations Committee reported S. 3676, the Department of State, Foreign
Operations, and Related Programs Appropriations Bill, 2011, recommending $2,126,382,000 for
the CIPA account. This was $55,918,000 below the President’s request, which had included that
amount to finance U.S. assessed contributions to the U.N. Support to the African Union Mission
in Somalia (UNSOA).5 This amount was transferred to the Peacekeeping Operations (PKO)
account to cover such assessed payments.6 Section 7047 (b) of S. 3676 sets the peacekeeping
assessment cap for assessments received by the United States in calendar years 2010 and 2011 at
27.3%.
President Obama’s March 24, 2010, FY2010 supplemental request for funding costs associated
with relief and reconstruction support for Haiti following the January 12, 2010, earthquake
included $96,500,000 to finance additional assessed U.S. contributions to the U.N. Stabilization
Mission in Haiti (MINUSTAH), the U.N. peacekeeping operation in Haiti, through the State
Department’s CIPA account. Immediately following the earthquake, the U.N. Security Council
had increased force levels for MINUSTAH.7 The FY2010 supplemental budget request also
included, under Foreign Operations, in the International Narcotics Control and Law Enforcement
Affairs (INCLE) account, $45,000,000 to support U.S. personnel to MINUSTAH, adding 30
police advisers and five corrections advisers. These funds would increase the U.S. totals to
MINUSTAH to 91: 80 police, 10 corrections officers, and one drug specialist.8 On July 29, 2010,
the President signed H.R. 4899, the Supplemental Appropriations Act, 2010, with the funding
requested for or related to MINUSTAH intact (P.L. 111-212).
Fiscal Year 2010
On May 7, 2009, the President requested, for FY2010, $2,260,000,000 to pay U.S. assessed
contributions to U.N. peacekeeping operations, in the State Department’s Contributions to
International Peacekeeping Activities (CIPA) account. This request included $46,233,000 for the
two international war crimes tribunals (Yugoslavia and Rwanda) that are not peacekeeping
operations. It also included $135,100,000 for U.S. assessed contributions to a special assessed
5 Under U.N. Security Council Resolution 1863 (2009), UNSOA delivers a logistics support capacity package to
AMISOM, the African Union Mission in Somalia. The U.N. Security Council anticipated that at some stage AMISOM
would form the basis for a U.N. mandated and conducted peacekeeping operation in Somalia.
6 The President’s PKO account request included $53,600,000 to continue support to the African Union peacekeeping
effort in Somalia, including training, equipment, and transportation, and to support Somali security forces. The
committee did not recommend the $53.6 million requested in PKO for those purposes.
7 S/RES/1908 (2010), adopted January 19, 2010. The military component was increased by 2,000, from 6,940 to 8,940
and the police component was increased by 1,500, from 2,211 to 3,711. On June 4, 2010, the U.N. Security Council
increased the police component by 680 personnel (S/RES/1927 (2010).
8 U.S. Department of State and U.S. Agency for International Development. FY2010 Haiti Supplemental Budget
Justification, p. 44. This “peacekeeping” portion of the [total $143,489,000] request[ed] for the INCLE account would
also pay for the construction of a temporary camp for the U.S. contingent and enough supplies to make them self-
sustaining. U.S. assistance would also provide for the procurement of emergency supplies, replacement uniforms and
equipment lost as a result of the earthquake, and purchase additional equipment needed to support an increased
personnel contribution to MINUSTAH. Finally, the funds would support the training and equipping of a Formed Police
Unit for the MINUSTAH mission in the areas of crowd/riot control and protection of U.N. facilities and personnel.
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account created by the U.N. General Assembly to support the African Union Mission in Somalia
(AMISOM).9
On June 26, 2009, the House Appropriations Committee recommended $2,125,000,000 for the
CIPA account; this was $135,000,000 lower than the request. The committee decided that most of
the funds requested for the U.S. assessment to the U.N. logistical support package for Somalia
($135,000,000 of the requested $135,100,000) be funded from the PKO account, used normally
for voluntary contributions. The committee provided $102,000,000 in the PKO account for
assistance for Somalia, including $55,000,000 to be used to pay assessed expenses.10 The
committee urged the Department to “give priority funding consideration” for the U.N.
peacekeeping operations in the Central African Republic and Chad (UNMURCAT) and the
Congo (MONUC) “during allocation of resources.”11 The committee directed the State
Department “to provide the necessary support to ensure that OIOS [U.N. Office of Internal
Oversight Services] oversight is systemically brought to bear on every UN peacekeeping mission,
including through the presence of resident auditors. The Committee directs the Department to
request a performance report on the efforts of this Office to root out the causes of waste, fraud,
and abuse.”12 In addition, the committee stresses “that the UN needs to press troop contributing
countries to seek justice” against those U.N. peacekeepers found to commit trafficking in persons
and illegal sexual exploitation.13 Finally, on the issue of the 25% cap on peacekeeping
assessments, the committee included a provision adjusting the level of U.S. assessments for
peacekeeping during calendar year 2010 from 25.0% to 27.1%. The committee did not include
the request increase for calendar year 2011, instead encouraging the Department to “negotiate a
lower assessment.” 14 The House passed H.R. 3081 on July 9, 2009.
On July 9, 2009, the Senate Appropriations Committee reported S. 1434, Department of State,
Foreign Operations and Related Appropriations Act, 2010, recommending $2,125,000,000 for the
CIPA account. This was $135,000,000 below the President’s request. The committee moved the
funding requested for the logistics support package for Somalia, “with modifications” to the PKO
account.15 The committee, in the PKO account, recommended up to $102,000,000 for
peacekeeping activities in Somalia, “of which up to $55,000,000 is for United Nations assessed
costs.”16
On December 16, 2009, the President signed H.R. 3288, the Consolidated Appropriations Act,
2010, Division F of which was the Department of State, Foreign Operations, and Related
Programs Appropriations Act, 2010.17 Congress provided $2,125,000,000 for the CIPA account,
of which 15% shall remain available until September 30, 2011. The conferees support the United
9 General Assembly Resolution 63/275, adopted April 7, 2009, for Financing of the Activities Arising from Security
Council Resolution 1863 (2009), adopted January 16, 2009. These resolutions provided for a logistical support package
to assist AMISOM and to enable the rapid deployment of a follow-on United Nations Peacekeeping Operation in
Somalia.
10 H.Rept. 111-187, p. 92-93.
11 H.Rept. 111-187, p. 25.
12 H.Rept. 111-187, p. 25.
13 H.Rept. 111-187, p. 26.
14 H.Rept. 111-187, p. 26.
15 S.Rept. 111-44, p. 22.
16 S.Rept. 111-44, p. 68.
17 P.L. 111-117.
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Nations Office of Internal Oversight Services (OIOS) to “identify waste, fraud and abuse,
including sexual abuse in peacekeeping operations, and to recommend corrective action and
reform. The conferees direct the Department of State to work to ensure that the OIOS has
sufficient resources to carry out its mandate.”18 The conference agreement, in Section 7051 on the
Peacekeeping Assessment, includes a provision that amends Section 404 (b)(2)(B) of the Foreign
Relations Authorization Act, Fiscal Years 1994 and 1995, by adding that the cap on peacekeeping
assessments made during calendar year 2010 is set at 27.3%. 19 In addition, the PKO account
included funding for peacekeeping activities in Somalia already proposed by the House and
Senate.20
Fiscal Year 2009
On February 4, 2008, President Bush, in his budget for FY2009, requested $1,497,000,000 for
U.S. contributions to U.N. peacekeeping operation assessed accounts in the Contributions to
International Peacekeeping Activities account (CIPA). This included $31,000,000 for U.S.-
assessed contributions to the two war crimes tribunals (Yugoslavia and Rwanda) that are not
peacekeeping operations. Bush also requested $247,200,000 for the FY2009 Peacekeeping
Operations (PKO) account. This account finances, inter alia, U.S. contributions to the Multilateral
Force and Observers (MFO), a non-U.N. peacekeeping operation, and other U.S. support of
regional and international peacekeeping efforts. The MFO implements and monitors the
provisions of the Egyptian-Israeli peace treaty of 1979 and its 1981 protocol, in the Sinai. On
May 2, 2008, President Bush sent Congress an amendment to his FY2009 budget, requesting for
the PKO account an additional $60 million, to fund U.S. assistance to international efforts to
monitor and maintain peace in Somalia and Democratic Republic of Congo. This brought the
FY2009 PKO request to $307,200,000.
In February 2008, President Bush also requested authority to pay up to 27.1% of the cost of any
U.N. peacekeeping operation assessments received from calendar year 2005 through calendar
year 2009. The Administration noted that the U.S.-assessed share of U.N. peacekeeping accounts
has “been reduced in recent years from well over 27 percent for assessments made in 2005 to just
under 26 percent for assessments received in 2008 and 2009.” The Administration request was
made “in order to allow for the payment of peacekeeping assessments at the rates assessed by the
United Nations, including amounts withheld because of the statutory cap limited payments to 25
percent of UN peacekeeping costs from 2005 through 2007....”21
On June 30, 2008, President Bush signed H.R. 2642, the Supplemental Appropriations Act, 2008
(P.L. 110-252), which included supplemental funding for U.S. contributions to U.N. peacekeeping
accounts in the CIPA account, Department of State, for both FY2008 and FY2009 and
supplemental funding for the PKO account for FY2009. Subchapter A, of Chapter 4—Department
of State and Foreign Operations—was titled Supplemental Appropriations for Fiscal Year 2008.
Under the CIPA account, $373,708,000 was appropriated, to remain available until September 30,
2009, of which $333,600,000 “shall” be for the U.N.-African Union Hybrid Mission in Darfur
18 H.Rept. 111-366, p. 1448.
19 This is similar to that proposed by both the House and the Senate.
20 H.Rept. 111-366, p. 305, 1486.
21 U.S. Department of State. Congressional Budget Justification. Fiscal Year 2009, p. 757. Found at
http://www.state.gov/documents/organization/100326.pdf.
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(UNAMID). The $40,108,000 difference was “to meet unmet fiscal year 2008 assessed dues for
the international peacekeeping missions to countries such as the Democratic Republic of the
Congo, Cote d’Ivoire, Haiti, Liberia, and Sudan.”22
Subchapter B, of Chapter 4 was titled Bridge Fund Supplemental Appropriations for Fiscal Year
2009. Congress appropriated an additional $150,500,000 for the CIPA account, which shall
become available on October 1, 2008, and remain available through September 30, 2009; and an
additional amount for the PKO account of $95,000,000, which shall become available on October
1, 2008, and remain available through September 30, 2009. This additional PKO money would
not be used to finance U.S. contributions to U.N. peacekeeping assessed accounts.23
On July 18, 2008, the Senate Appropriations Committee reported S. 3288, the Department of
State, Foreign Operations, and Related Programs Appropriations Act, 2009. The committee
recommended $1,650,000,000 in FY2009 appropriations to the CIPA account, an amount that was
$153,000,000 above the President’s request. This was in addition to the $150,500,000 provided in
Bridge Funding for FY2009 in P.L. 110-252. The committee noted “that the budget request for
U.S. assessed contributions to international peacekeeping missions assumed a reduction in the
cost of every mission below the fiscal year 2008 operating level.... The Committee recognizes the
significant contribution to international peace and stability provided by U.N. peacekeeping
activities, without the participation of U.S. troops. The Committee does not support OMB’s
practice of under-funding peacekeeping activities and relying on limited supplemental funds to
support only a few missions.”24
The committee bill included language, as requested by the President, to “adjust the authorized
level of U.S. assessments for peacekeeping activities for calendar year 2009 and prior years from
25 percent to 27.1 percent, consistent with the level set in fiscal year 2008 (P.L. 110-161).” The
committee expected “that future budget requests shall include sufficient funding to support such
authorization.”25
The committee report also included the following:
The Committee directs the Department of State to seek to ensure that all peacekeepers,
civilian police, and other United Nations personnel being trained and equipped with funds
contributed by the United States in preparation for deployment as part of peacekeeping
missions, receive proper training to prevent and respond to violence against women and
girls. The Secretary of State should work aggressively with the United Nations to ensure that
individuals who are found to have engaged in exploitation or violence against women are
held accountable, including prosecution in their home countries.26
S. 3288 was placed on the Senate Legislative Calendar but was not considered on the Senate
floor.
22 Congressional Record [daily edition], June 19, 2008: H5676.
23 Congressional Record [daily edition], June 19, 2008: H5680.
24 S.Rept. 110-425, pages 23-24.
25 S.Rept. 110-425, pages 23-24.
26 S.Rept. 110-425, page 23.
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On July 16, 2008, the State and Foreign Operations Subcommittee of the House Appropriations
Committee approved its FY2009 bill, which was sent to the full committee. The subcommittee
recommendation was never issued as a bill.
On September 30, 2008, President Bush signed H.R. 2638, the Consolidated Security, Disaster
Assistance, and Continuing Appropriations Act, 2009, into law as P.L. 110-329. Division A of the
Act, the Continuing Appropriations Resolution, 2009, provided appropriations for nine regular
appropriations for FY2009, through March 6, 2009, at FY2008 spending levels, as apportioned by
the Office of Management and Budget (OMB).27 According to the State Department, the funds
available for the CIPA during this period are $525,800,000. Funds available for the PKO account
during this period total $97,366,613.
On March 11, 2009, President Obama signed H.R. 1105, the Omnibus Appropriations Act, 2009
(P.L. 111-8). Division H of the Act was the Department of State, Foreign Operations, and Related
Programs Appropriations Act and included funding for U.S. assessed contributions to U.N.
conducted peacekeeping operation accounts. CIPA account funding totaled $1,517,000,000, in
addition to the $150,500,000 appropriated for FY2009 in P.L. 110-252. Section 7051, on
Peacekeeping Assessment, amended Section 404 (b)(2)(B) of the Foreign Relations Authorization
Act, Fiscal Years 1994 and 1995 (22 U.S.C. 287e note), by deleting subsection (v) and replacing
it with “(v) For assessments made during each of the calendar years 2005, 2006, 2007, 2008, and
2009, 27.1 percent.”
The joint explanatory statement directed the Department of State to “provide full funding” for the
U.S. assessed contribution to the UN/African Union Hybrid operation in Darfur (UNAMID),
ensuring that UNAMID personnel receive training on prevention of and response to violence
against women. The State Department was also directed to “support oversight of peacekeeping
missions by the UN’s OIOS to identify waste, fraud and abuse, including sexual abuse within
every UN peacekeeping mission, and submit to the Committees on Appropriations a performance
report on the progress of these efforts.”28
Supplemental Appropriations Act, 2009
On April 9, 2009, President Obama submitted a supplemental request, most of which was for
military and security efforts in Afghanistan, Pakistan, and Iraq. Under the CIPA account, he
requested an additional $836,900,000, to be available through September 30, 2010. He requested
that up to $50,000,000 be available for transfer to and merging with the Peacekeeping Operations
(PKO) account for peacekeeping in Somalia. It was anticipated that $454,529,000 of the request
for the CIPA account would be available for paying shortfalls in U.S. assessed contributions to
existing U.N. peacekeeping operations. The supplemental also requested $50,000,000 for the
PKO account that normally finances U.S. voluntary support for peacekeeping.
On June 24, 2009, the President signed H.R. 2346, the Supplemental Appropriations Act, 2009
(P.L. 111-32), which provided $721,000,000 for the CIPA account, $115.9 million less than the
request. It provided $185,000,000 for the PKO account, including up to 115.9 million that may be
used to pay assessed expenses of international peacekeeping activities in Somalia.
27 According to OMB Bulletin No. 08-02, dated September 30, 2008, the percentage of the year covered by the CR is
43.01%. The Continuing Resolution was extended through March 11, 2009, in P.L. 111-6.
28 Committee Print, p. 1884-1885.
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Fiscal Year 2008
On February 5, 2007, the Bush Administration requested, in its FY2008 budget, $1,107,000,000
to pay U.S. assessed contributions to U.N. peacekeeping operations in the State Department’s
Contributions to International Peacekeeping Activities (CIPA) account. The CIPA request
included $34,181,000 for the two war crimes tribunals (Yugoslavia and Rwanda) that are not
peacekeeping operations.29 Bush also requested $221,200,000 in voluntary contributions for the
FY2008 Peacekeeping Operations (PKO) account to finance, inter alia, U.S. contributions to the
Multilateral Force and Observers (MFO), a non-U.N. operation, and other U.S. support of
regional and international peacekeeping efforts. The MFO implements and monitors the
provisions of the Egyptian-Israeli peace treaty of 1979 and its 1981 protocol, in the Sinai.
On June 18, 2007, the House Appropriations Committee recommended $1,302,000,000 for the
CIPA account and $293,200,000 for the PKO account.30 It included language setting the
peacekeeping assessment cap at 27.1% for calendar year 2008. 31 The committee, in
recommending funding for CIPA at $195 million above the Administration’s request, expressed
“concern”
[t]hat the Administration has not adequately planned for funding International Peacekeeping
activities. Committee analysis has concluded that the Administration’s budget request in
fiscal year 2008 for CIPA is a cut of 3 percent below the fiscal year 2007 level and that all
missions except UNMIS are taking a reduction in the President’s request. The Committee
continues to inquire as to the rationale used by the Secretary of State when requesting
$28,275,000 below the fiscal year 2007 level in the CIPA account. The Committee is
concerned that peacekeeping missions could be adversely affected if the requested fiscal year
2008 funding level is enacted. The Committee notes that in the last year the Administration
has voted for: a seven-fold expansion of the UN’s peacekeeping mission in Lebanon; the
expansion of the UN’s peacekeeping mission in Darfur; reauthorization of the UN’s
peacekeeping mission in Haiti; and a renewed peacekeeping mission in East Timor.32
The committee noted that some non-governmental organizations and outside experts have
estimated that the U.S. debt to U.N. peacekeeping operations might reach $1 billion if funding is
not increased and if additional projected peacekeeping operations are created. “The Committee is
concerned that these debts are preventing the UN from paying the countries that provide troops
for UN peacekeeping missions and will likely significantly impact India, Pakistan, and
Bangladesh.” The House, in passing H.R. 2764, Department of State, Foreign Operations, and
Related Programs Appropriations Act, 2008, on June 22, 2007, approved the committee’s
recommendations for funding and for the peacekeeping assessment cap.
On July 10, 2007, the Senate Appropriations Committee reported H.R. 2764, recommending
$1,352,000,000 for the CIPA account and $273,200,000 for the PKO account.33 The committee
recommendation for CIPA is $245 million above the President’s request but, according to the
29 Each of these tribunals is funded from both the CIPA account and the Contributions to International Organizations
(CIO) account. See CRS Report RL33611, United Nations System Funding: Congressional Issues, by Marjorie Ann
Browne and Kennon H. Nakamura.
30 H.Rept. 110-197, p. 32-35, and 127-130.
31 H.R. 2764, as reported, sec. 684.
32 H.Rept. 110-197, p. 33.
33 S.Rept. 110-128, p. 19-20 and 67-68.
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committee, “still $66,275,000 below projected current requirements for U.S. contributions to
peacekeeping.” The committee continued, “the request was unrealistic considering the significant
contribution to peace and stability provided by U.N. peacekeeping activities, without the
participation of U.S. troops.... The Committee does not support the administration’s practice of
under-funding peacekeeping activities and relying on limited supplemental funds.” The
committee included language to “adjust the authorized level of U.S. assessments for
peacekeeping activities for fiscal year 2008 from 25 percent to 27.1 percent.” (Section 113 of the
reported bill stipulated for “assessments made during calendar year 2008, 27.1 percent.”) On
September 6, 2007, the Senate passed H.R. 2764, providing the committee-recommended funding
for the CIPA and PKO accounts and the increased peacekeeping assessment cap for CY2008.
On October 22, 2007, President Bush sent to Congress amendments to his FY2008 budget request
in a FY2008 Supplemental that included an additional $723,600,000 for the CIPA account to
remain available until September 30, 2009. This amount, designated as “emergency
requirements,” would fund the U.S. share of the start-up, infrastructure, and operating costs of the
new U.N. peacekeeping operation in Darfur (UNAMID).
On December 19, 2007, Congress passed and sent to President Bush H.R. 2764, the Consolidated
Appropriations Act, 2008, Division J of which provided funding for the Department of State,
Foreign Operations, and Related Programs Act, 2008. The President signed the bill on December
26, 2007 (P.L. 110-161). The bill included across-the-board rescissions. The estimated figure after
application of the rescission is provided in brackets. The bill provided $1,700,500,000
[$1,690,517,000] for CIPA, of which $468,000,000 was designated emergency, for U.S.
contributions to UNAMID. The President had, for FY2008, requested a total of $1,830,600,000
for the CIPA account, $723,600,000 of which was designated an emergency requirement.
Congress included, for the PKO account, $263,230,000 [$261,381,000], including not less than
$25 million for the U.S. contribution to the MFO in the Sinai. This also included $35 million
designated as emergency. The President had requested $221,200,000 in funds for the PKO
account for FY2008.34
Fiscal Year 2007 Supplemental
President Bush also requested on February 5, 2007, FY2007 supplemental funding for CIPA and
for PKO. The CIPA supplemental request of $200 million was to pay U.S. contributions for
“unforeseen” U.N. peacekeeping expenses: $184 million for the expanded force in Lebanon
(UNIFIL) and $16 million for the U.N. operation in Timor Leste (UNMIT). The PKO
supplemental request of $278 million was to support peacekeeping efforts in Darfur through the
African Union Mission in Sudan (AMIS)—$150 million—and support peacekeeping needs in
Chad and Somalia—$128 million. The request stipulated that up to $128 million of the total may
be transferred to CIPA, for assessed costs of U.N. peacekeeping operations. “The requested
transfer authority would provide the flexibility to fund either a United Nations peacekeeping
mission to Chad and Somalia or to support the efforts of African regional security organizations
such as the African Union.”35
34 The FY2008 Emergency Supplemental request did not include additional funds for the PKO account.
35 The Budget for Fiscal Year 2008; Appendix volume, p. 1172
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On March 23, 2007, the House passed H.R. 1591, Making Emergency Supplemental
Appropriations for FY2007, which provided $288,000,000 for the CIPA account and
$225,000,000 for the PKO account, but without the authority to transfer up to $128 million from
the PKO to the CIPA account.36 On March 22, 2007, the Senate Appropriations Committee
reported S. 965, recommending $200 million for the CIPA account and $323 million for the PKO
account and including the authority to transfer up to $128 million to the CIPA account. The PKO
section also included a requirement that not less than $45 million shall be made available for
assistance for Liberia, for security sector reform.37 On March 29, 2007, the Senate passed its
amendment to H.R. 1591, with these reported provisions on the CIPA and PKO accounts
unchanged. On April 24, 2007, a conference report on H.R. 1591 was filed, providing $288
million for the CIPA account and $230 million for PKO, of which $40 million would be available
for Liberia. There was no transfer authority language. H.R. 1591 was cleared for the White House
on April 26, 2007, and, on May 1, was vetoed by the President because of Iraq-related language.
Action to override the veto failed on May 2, 2007.
On May 25, 2007, Congress sent to President Bush H.R. 2206, a FY2007 emergency
supplemental appropriations bill, which the President signed the same day (P.L. 110-28). This bill,
cited as the U.S. Troop Readiness, Veterans’ Care, Katrina Recovery, and Iraq Accountability
Appropriations Act, 2007, included $283,000,000 for CIPA, to remain available until September
30, 2008; $190,000,000 for PKO, to remain available until September 30, 2008; and $40,000,000
for PKO, to remain available until September 30, 2008, provided that these funds “shall be made
available, notwithstanding section 660 of the Foreign Assistance Act of 1961, for assistance for
Liberia for security sector reform.”38
H.R. 2206 referred to the joint explanatory statement in the conference report on H.R. 1591
(H.Rept. 110-107) for directives and other information for expenditure of these funds. Thus, for
CIPA, the conferees specified $184 million for UNIFIL (Lebanon), $16 million for the U.N.
Mission in Timor Leste, and $88 million for a potential operation in Chad. If funds are not
obligated for a U.N. mission in Chad by August 15, 2007, the conferees asked the State
Department to consult with the appropriations committees “on the funding needs for other
priority missions” within CIPA. It should be noted that H.R. 1591 provided $288 million for
CIPA, whereas H.R. 2206 provided $283 mission for CIPA. H.R. 2206 provided funds for the
PKO account in two separate sections that together totaled the amount provided in H.R. 1591.
Fiscal Year 2007
On February 6, 2006, the Bush Administration had requested, in its FY2007 budget,
$1,135,327,000 to pay U.S. assessed contributions to U.N. peacekeeping operations in the State
Department’s Contributions to International Peacekeeping Activities (CIPA) account. The CIPA
request included $44,303,000 for the two war crimes tribunals (Yugoslavia and Rwanda) that are
not peacekeeping operations. Bush also requested $200,500,000 in voluntary contributions for the
FY2007 Peacekeeping Operations (PKO) account under the Foreign Operations Act. This account
36 H.Rept. 110-60, pp. 196-197, 205-206. The CIPA account included $184 million for UNIFIL, $16 million for
UNMIT, and $88 million for a potential Chad mission. The PKO account included $40 million for Somalia, $150
million for the AU operation in Sudan (AMIS), and $35 million for security sector reform in Liberia.
37 S.Rept. 110-37 and S. 965, p. 37, 44-45.
38 For further background, see CRS Report RL33185, Liberia’s Post-War Development: Key Issues and U.S.
Assistance, by Nicolas Cook.
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would finance the U.S. contribution to the Multilateral Force and Observers in the Sinai (MFO), a
non-U.N. peacekeeping operation, and U.S. support of regional and international peacekeeping
efforts in Africa, Asia, and Europe.
On June 9, 2006, the House, in H.R. 5522, the Foreign Operations Act, proposed $170 million in
the FY2007 PKO account. On June 20, 2006, the House, in the State Department Appropriations
Act, 2007 (H.R. 5672), agreed to the requested $1,135,327,000 for the CIPA account. This was
$113,052,000 over the amount provided for FY2006, in regular appropriations. On the same day,
the Senate Appropriations Committee recommended, in H.R. 5522, appropriations for the State
Department and for Foreign Operations, the amount requested for CIPA and $97,925,000 for the
PKO account.39 The Senate did not act on this bill in the 109th Congress.
On February 15, 2007, President Bush signed H.J.Res. 20, the Revised Continuing
Appropriations Resolution, 2007, which amended the Continuing Appropriations Resolution 2007
(P.L. 109-289, division B), as amended by P.L. 109-369 and P.L. 109-283, to extend through
September 30, 2007. P.L. 110-5 included specific figures for the CIPA account ($1,135,275,00)
and the PKO account ($223,250,000), of which not less than $50 million should be provided for
peacekeeping operations in Sudan.
U.N. Peacekeeping: Funding Assessed Contributions—
FY2009-FY2011
Table 1 shows FY2009 allocations, FY2010 enacted, and the FY2011 request. (Table 5 shows
FY1988-FY2006 data.)
Table 1. U.N. Peacekeeping-Assessed Contributions FY2009 Allocations, FY2010
Enacted, and FY2011 Request
(in millions of $)
FY2009
FY2010
FY2011
Operation
Allocations
Enacted
Request
UNDOF (Israel-Syria)
7.660
10.290
12.990
UNIFIL (Lebanon)
186.400
210.914
212.000
MINURSO (W. Sahara)
8.400
14.097
16.440
UNMIK (Kosovo)
20.000
0
13.480
UNFICYP (Cyprus)
4.540
7.672
8.230
UNOMIG (Georgia)
7.400
7.415
0
UNMIT (E. Timor)
34.500
44.115
56.340
MONUC (Congo)
210.000
381.000
408.000
UNMEE (Ethiopia/Eritrea)
26.000
0
0
UNMIL (Liberia)
123.400
135.400
135.400
UNMIS (Sudan)
208.900
257.325
280.780
39 S.Rept. 109-277.
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FY2009
FY2010
FY2011
Operation
Allocations
Enacted
Request
UNOCI (Cote d’Ivoire)
81.000
128.585
135.000
MINUSTAH (Haiti)
114.400
164.154
177.250
UNAMID (Darfur)
414.000
512.100
412.000
MINURCAT (Chad)
39,400
205.700
220.500
Peacekping Logistical Support, Somalia
0
0
55.918
Subtotals 1,486.000
2,078.767
2,144.328
War crimes tribunals
31.000
46.233
37.972
Supplementalsa
871.500 0
0
TOTALS
2,388.500 2,125.000
2,182.300
a. FY2009 Actual includes $150.5 million in bridge funding provided by the Supplemental Appropriations Act,
2008 P.L. 110-252) and $721.0 million in the Supplemental Appropriations Act, FY2009 (P.L. 111-32).
The Peacekeeping Assessment Cap
United States U.N. peacekeeping requests were funded during FY1997 through FY2001 at an
assessment level of 25%, in accordance with Section 404 (b)(2), P.L. 103-236, rather than at the
level assessed by the United Nations. The scale of assessments for U.N. peacekeeping is based on
a modification of the U.N. regular budget scale, with the five permanent U.N. Security Council
members assessed at a higher level than they are for the U.N. regular budget. Since 1992, U.S.
policy was to seek a U.N. General Assembly reduction of the U.S. peacekeeping assessment to
25%, meaning an increase of other countries’ assessments. Since October 1, 1995, based on
congressional requirements, U.S. peacekeeping payments had been limited to 25%. This limit, or
cap, on U.S. payments added to U.S. arrearages for U.N. peacekeeping accounts. Table 2 and the
discussion following it recount changes or amendments to Section 404 (b)(2) that increased the
cap from 25%. Since the 25% cap remains for assessments made in CY1996 through CY2000,
significant arrearages remain for the United States in its contributions to many closed or ended
U.N. peacekeeping operations (see Appendix D).
Table 2. U.N. Peacekeeping Assessment Levels for the United States, Calendar Years
1992-2010
U.N.
Recognized by
U.N.
Recognized by
Year
Assessment
U.S.
Year
Assessment
U.S.
1992 30.387%
30.4%
2002 27.3477%
27.90%
(30.4%)
(27.35%)
1993 31.739%
30.4%
2003 26.927%
27.40%
(31.7%)
(26.93%)
1994 31.735%
30.4%
2004 26.690%
27.40%
(31.7%)
(26.69%)
1995 31.151%
30.4%; Oct. 1: 25%
2005
26.4987%
27.1%
(31.2%)
(26.5%)
1996 30.965%
25%
2006 26.6901%
25%//27.1%b
(30.9%)
(26.7%)
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U.N.
Recognized by
U.N.
Recognized by
Year
Assessment
U.S.
Year
Assessment
U.S.
1997 30.862%
25%
2007 26.0864%
25%//27.1%b
(30.9%)
(26.08%)
1998
30.5324% (30.5%)
25%
2008
25.9624%
27.1%
(25.9%)
1999
30.3648% (30.4%)
25%
2009
25.9624%
27.1%
(25.9%)
2000
30.2816% (30.3%)
25%
2010
27.1743% (27.17%)
27.3%
2001 28.134%
25% // 28.15%a
(28.13%)
a. The cap changed during 2001. See paragraph below.
b. The cap was increased in the Department of State, Foreign Operations, and Related Programs
Appropriations Act, 2009 (P.L. 111-8, Division H). See paragraphs below.
In December 2000, the U.N. General Assembly reduced the U.S. regular budget assessment level
to 22%, effective January 1, 2001, and, in effect, reduced the U.S. assessment for peacekeeping
contributions progressively to 25%. Then U.N. Ambassador Richard Holbrooke in testimony in
January 2001, stated that “The U.S. rate will continue to progressively decline, and we expect that
it will reach 25% by roughly 2006 or 2007.”40 In response, Congress passed S. 248, which
amended the 1999 enacted legislation authorizing payment of U.S. arrears on its contributions to
the United Nations, once certain conditions had been met. One of the conditions required
Assembly reduction of the U.S. peacekeeping assessment level to 25%. S. 248 (P.L. 107-46,
signed October 5, 2001) changed that condition figure to 28.15%.
In 2002, in Section 402, of P.L. 107-228, Congress raised the 25% cap for peacekeeping
payments that had been set by P.L. 103-236 to a range of 28.15% for Calendar Year (CY) 2001 to
27.4% for CY2003 and CY2004. Table 1 under “Recognized by U.S.” reflects these changes.
This would enable U.S. peacekeeping assessments to be paid in full. Section 411 of Division B of
P.L. 108-447, signed December 8, 2004, continued the increased cap for assessments made during
CY2005 to 27.1%.
However, FY2006 legislation did not include a provision on the cap, which returned to 25% for
assessments made in CY2006. On March 10, 2005, the Senate Committee on Foreign Relations
had reported S. 600, the Foreign Affairs Authorization Act, Fiscal Years 2006 and 2007. Section
401, Limitation on the United States share of assessments for United Nations peacekeeping
operations, would have set a permanent ceiling of 27.1% on U.S. payments to U.N. peacekeeping
accounts (S.Rept. 109-37, p. 16-17). During Senate floor consideration of S. 600, Committee
chair Senator Richard Lugar proposed an amendment (S.Amdt. 266) to strike this provision from
the bill. He maintained that passing a permanent ceiling of 27.1% at that time might reduce U.S.
leverage in negotiating toward the U.S. goal of 25% as an assessment rate for its U.N.
peacekeeping contributions. Senator Joseph Biden introduced a “second degree amendment”
(S.Amdt. 286) that would keep the then current rate of 27.1% for the next two calendar years:
40 Holbrooke, Richard C. Permanent Representative of the United States to the United Nations. Prepared Statement,
January 9, 2001. In U.S. Congress. Senate. Committee on Foreign Relations. A Report on the United Nations Reforms.
Hearing, 107th Congress, 1st Session, January 9, 2001. Washington, DC, U.S. Government Printing Office, 2001. (S.
Hrg. 107-15) p. 15-19.
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“For assessments made during calendar years 2005, 2006, and 2007, 27.1 percent.” This
amendment, Senator Biden maintained, would put into place the language the President asked for
in his FY2006 budget request. On April 6, 2005, the Senate rejected S.Amdt. 286 and agreed to
S.Amdt. 266, dropping section 401, that would have instituted a permanent change to 27.1%. The
Senate did not complete action on S. 600. On December 13, 2005, Senator Biden introduced S.
2095 that would set the cap for assessments made for CY2005 and CY2006 at 27.1%.
The President’s February 6, 2006 budget request for FY2007 included legislative language that
would set the cap at 27.1% for assessments made during CYs 2005, 2006, 2007, and 2008. On
June 22, 2006, the Senate passed S. 2766, the Defense Authorization Act for FY2007, including
an amendment by Senator Biden that would set the cap for U.S. contributions at 27.10% for
assessments made for U.N. peacekeeping operations for CYs 2005, 2006, and 2007. This
provision was dropped during conference consideration of H.R. 5122, the John Warner National
Defense Authorization Act for Fiscal Year 2007, that was presented to the President on October 5,
2006, for his signature.41 Thus, at the start of the 110th Congress, the cap on funds available for
U.S. assessed contributions to U.N. peacekeeping accounts remained at 25%.
On January 25, 2007, Senator Biden introduced S. 392, “to ensure payment of United States
assessments for United Nations peacekeeping operations for the 2005 through 2008 time period.”
It would amend the Foreign Relations Authorization Act, Fiscal Years 1994 and 1995 (P.L. 103-
236) to add “For assessments made during calendar years 2005, 2006, 2007, and 2008, 27.1
percent.” President Bush’s FY2008 budget request, released February 5, 2007, included identical
legislative language. Both provisions were to be added to Section 404 (b)(2)(B) of P.L. 103-236,
as amended. Senator Biden’s bill also contained a “conforming amendment” that “Section 411 of
the Department of State and Related Agency Appropriations Act, 2005 (title IV of division B of
P.L. 108-447; 22 U.S.C. 287e note) is repealed.”
On July 16, 2007, the Senate Committee on Foreign Relations reported S. 392, without
amendment favorably.42 The committee report noted that the legislation “is designed to allow the
United States to fully pay its dues to U.N. peacekeeping operations, pay arrears that have
accumulated since January 2006, and ensure that no additional arrears accrue in 2007 and 2008.”
The Congressional Budget Office, in its cost estimate noted,
Based on information from the State Department, CBO estimates that by raising the cap, the
bill would allow the department to pay the U.N. an additional $157 million—$65 million for
2006 arrears, $48 million for the 2007 arrears, and $44 million for 2008 arrears (the
department’s request for 2008, based on the statutory cap of 25 percent, has not yet been
appropriated.) CBO estimates that the department would pay the U.N. $126 million in 2008
and $31 million in 2009 under the bill, assuming appropriation of the necessary amounts and
that outlays will follow historical spending or receipts.43
The Senate did not act on S. 392. The Omnibus Appropriations Act, Division J, included language
setting the peacekeeping assessment cap at 27.1% for assessments made in 2008.
41 U.S. Congress. House. Conference Report to Accompany H.R. 5122. H.Rept. 109-702 (109th Congress, 2nd session),
p. 826.
42 S.Rept. 110-130.
43 Ibid., p. 3.
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The President, in his FY2009 budget, requested authority to pay up to 27.1% of the cost of any
U.N. peacekeeping operation assessments received from calendar year 2005 through calendar
year 2009. This request was supported by the Senate Appropriations Committee in S. 3288,
Department of State, Foreign Operations, and Related Programs Appropriations Bill, 2009, and
was included in the enacted Appropriations Act, 2009 (P.L. 111-8, Division H), signed March 11,
2009. The Department of State, Foreign Operations, and Related Programs Appropriations Act,
2010 (P.L. 111-117, Division F), set the cap on peacekeeping assessments made during calendar
year 2010 at 27.3%. The President’s FY2011 budget requested authority to pay up to 27.5% for
assessments made during calendar year 2011.
Notifications to Congress
Since 1997, pursuant to a provision in the State Department Appropriations Act, 1997, P.L. 104-
208 (Omnibus Consolidated Appropriations Act, 1997), Congress has required the Secretary of
State to notify it 15 days before U.S. support of a U.N. Security Council resolution setting up a
new or expanding a current peacekeeping operation. The notification is to include “the estimated
cost and length of the mission, the vital national interest that will be served, and the planned exit
strategy.” A reprogramming request, indicating the source of funding for the operation, is also
required. Tradition has sometimes resulted in a committee or subcommittee chairman “placing a
hold” on the proposed reallocation in the reprogramming request, if it is not acceptable to him or
her.
In addition, the Committees on Appropriations and other appropriate committees are to be
notified that the United Nations has acted to prevent U.N. employees, contractor personnel, and
peacekeeping forces serving in any U.N. peacekeeping mission from trafficking in persons,
exploiting victims of trafficking, or committing acts of illegal sexual exploitation, and to hold
accountable individuals who engage in such acts while participating in the peacekeeping
mission.44 An older notification requirement is that funds shall be available for peacekeeping
expenses only upon a certification by the Secretary of State to the appropriate committees that
American manufacturers and suppliers are being given opportunities to provide equipment,
services, and material for U.N. peacekeeping activities equal to those being given to foreign
manufacturers and suppliers.
Basic Information
United Nations peacekeeping might be defined as the placement of military personnel or forces in
a country or countries to perform basically non-military functions in an impartial manner. These
functions might include supervision of a cessation of hostilities agreement or truce, observation or
presence, interposition between opposing forces as a buffer force, maintenance and patrol of a
border, or removal of arms from the area. The U.N. Charter did not specifically provide for
“peacekeeping operations.” This term was devised in 1956, with the creation of the U.N.
Emergency Force as an interposition force between Israel and Egypt.45
44 Added in Department of State Appropriations Act, 2006, Title IV of P.L. 109-108 (H.R. 2862), November 22, 2005
[119 Stat. 2323]. This report is sent to Congress on a semi-annual basis.
45 See discussion of U.N. peacekeeping operations and concepts in Simma, Bruno. The Charter of the United Nations;
a Commentary; Second Edition. New York, Oxford University Press, 2002. Vol. I, pages 648-700. Simma places this
(continued...)
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The U.N. Security Council normally establishes peacekeeping operations in keeping with certain
basic principles, which include agreement and continuing support by the Security Council;
agreement by the parties to the conflict and consent of the host government(s); unrestricted access
and freedom of movement by the operation within the countries of operation and within the
parameters of its mandate; provision of personnel on a voluntary basis by U.N. members; and
noninterference by the operation and its participants in the internal affairs of the host government.
The conditions under which armed force may be used to carry out the mandate or for other
purposes is set forth in the Council resolution or in Council approval of the rules of engagement
or concept of operations.
U.N. peacekeeping operations may take the form of either peacekeeping forces, such as the U.N.
Force in Cyprus (UNFICYP), the U.N. Operation in the Congo [in the 1960s], or the U.N. Interim
Force in Lebanon (UNIFIL), or observer missions, such as the U.N. Iran-Iraq Military Observer
Mission (UNIIMOG), the U.N. Observer Group in Central America (ONUCA), or the U.N. Truce
Supervision Organization in Palestine (UNTSO). The distinctions between observer missions and
peacekeeping forces are found in the mandate or function of the operation, the numbers and types
of personnel used, and whether the personnel are armed. Usually, peacekeeping forces are larger
in the numbers of personnel, equipment, and cost than observer missions and are lightly armed
rather than unarmed, as are observers.
When the U.N. Security Council establishes a U.N.-conducted peacekeeping operation, its
resolution also specifies how the operation will be funded. In most instances, this is by a special
assessed account to be created by the U.N. General Assembly. Under the U.N. Charter, the
General Assembly approves the budget and expenses of the organization; this includes U.N.
peacekeeping operations. Each operation has a separate budget that is financed from a separate
assessed account. In 1994, the Assembly decided that the financial period for each operation
would be changed from January through December to July 1 to June 30, effective not later than
July 1, 1996. As U.N. peacekeeping operations grew in number and complexity, the Assembly
found it required a longer period of time to consider the budgets of each operation and other
agenda items associated with United Nations peacekeeping.46
Since 1948, the United Nations has established 64 peacekeeping operations, 15 of which are
currently active. A review of the data in Appendix B, “U.N. Peacekeeping Operations: Numbers
Created Annually, 1948-2010,” shows a pattern of increase in the creation of operations that
escalated during the mid-1990s. This increase placed a strain on the then-not-well-developed
capacities of the U.N. Secretariat to support larger numbers of operations and personnel and also
led to what some have called “donor fatigue” on the part of actual and potential troop contributing
countries. The resulting hesitation or reluctance to rapidly provide personnel for U.N.
peacekeeping operations created by the U.N. Security Council continues today.
(...continued)
discussion between Chapters VI and VII of the U.N. Charter. U.N. peacekeeping operations have often been referred to
as Chapter VI and ½ operations. See also http://www.un.org/Depts/dpko/dpko/faq/ for a 28-page brochure of questions
and answers on U.N. peacekeeping.
46 See How is UN peacekeeping financed? and Peacekeeping budgets at http://www.un.org/ga/fifth/pkofinancing.shtml.
Link to Assembly Resolution 49/233 A (December 23, 1994) is available under Peacekeeping budgets. A new session
of the Assembly starts in September of each year and meets daily through mid to late December. Most of the issues on
the Assembly’s agenda are considered and acted on during this three-month period, usually referred to as the main part
of the session. Peacekeeping items are, for the most part, considered the following May.
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Current United Nations statistics on U.N. peacekeeping often refer to higher numbers of
operations and personnel than are provided in the paragraph above. For example, the February
2007 report of the Secretary-General on implementation of recommendations of the Special
Committee on Peacekeeping Operations, in referring to a “surge in United Nations
peacekeeping,” noted that—
as 2006 drew to a close, almost 100,000 men and women were deployed in 18 peace
operations around the world, of which approximately 82,000 were troops, police, and
military observers provided by contributing countries. Those figures are set to increase
further in 2007, with the completion of deployments currently under way ... and the prospect
of new United Nations peace operations being established, whether United Nations
peacekeeping missions or special political missions. In parallel, the Department of
Peacekeeping Operations has increased its administrative and logistics support to special
political missions managed by the Department of Political Affairs, and is currently
supporting 15 such field offices. More recently, it has become increasingly engaged in
assisting regional actors to develop their peacekeeping capabilities, in particular providing
substantial support to the African Union Mission in the Sudan (AMIS).47
The use of the term “peace operations” in this context can be tracked back to the Brahimi Panel
report (see “Brahimi Panel Report (2000),” below). Peace operations might be seen and identified
within the overall context of the Charter role of the U.N. Security Council in the maintenance of
international peace and security (see Article 24 of the Charter), with U.N. peacekeeping being
only one element or component of the array of responses the Council might employ. U.N. peace
operations, as defined in the Brahimi Report, “entail three principal activities: conflict prevention
and peacemaking; peacekeeping; and peace-building.”48 The numbers used when referring to the
numbers of personnel involved in peace operations as compared with the numbers of personnel
involved in U.N. peacekeeping operations can derive from two different aspects:
(1) U.N. peacekeeping operations data generally tracks the numbers of uniformed personnel
provided by U.N. member states and does not include the numbers of civilians in those
operations, either recruited locally or those internationally recruited. These increasingly larger
numbers of civilians are included in data tracking the numbers of personnel in peace operations.
(2) As reflected in the data, the number of currently deployed peacekeeping operations, 15, as of
June 30, 2010, differs from the number of peace operations, 16, which includes one peace
operation—UNAMA, in Afghanistan.49
47 United Nations. Implementation of the recommendations of the Special Committee on Peacekeeping Operations.
Report of the Secretary-General. New York, United Nations, 2007. U.N. document A/61/668, p. 3.
48 U.N. document A/55/305-S/2000/809, p. 2, para. 10.
49 UNAMA is the U.N. Assistance Mission in Afghanistan, identified as being directed and supported by the
Department of Peacekeeping Operations (DPKO). This data is from the Background Note - United Nations
Peacekeeping Operations, updated monthly at http://www.un.org/en/peacekeeping/bnote.htm. However, different data
is found at the DPKO website that provides a Monthly Summary of Contributors of Military and Police Personnel.
These tables, as of June 30, 2010, total 19 peace operations, 15 of which are U.N. peacekeeping operations. The
additional four operations include UNAMA; UNAMI (U.N. Assistance Mission for Iraq); BINUB (the U.N. Integrated
Office in Burundi); and UNMIN (the U.N. Mission in Nepal). These tables may be found at http://www.un.org/en/
peacekeeping/contributors/.
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U.S. Provision of Personnel
Section 7 of the U.N. Participation Act (UNPA) of 1945, as amended (P.L. 79-264), authorized
the President to detail up to 1,000 members of the U.S. armed forces to the United Nations in a
noncombatant capacity.50 Throughout U.N. history, the United States has provided various goods
and services, including logistics, and has detailed its military to U.N. peacekeeping tasks, but in
small numbers. Before 1990, the major category of forces provided by the United States were the
individual military officers participating as observers in the UNTSO.
The President has also used the authority in section 628 of the Foreign Assistance Act (FAA) of
1961 to provide U.S. armed forces personnel to U.N. peacekeeping operations. Under this
section, such personnel may be detailed or sent to provide “technical, scientific or professional
advice or service” to any international organization. For example, as of November 30, 1995, an
estimated 3,254 U.S. military personnel served under U.N. control in eight operations. This
included participation, under section 7 of the UNPA, of an estimated 748 and participation of an
estimated 2,506 under section 628 of the FAA. The breakout of figures under each section for the
forces in Macedonia (UNPREDEP) and Haiti (UNMIH) are based on the percentage in strength
(the figure in brackets) as of September 6, 1995. See Table 3.
Table 3. U.S. Military Personnel Under U.N. Control as of November 30, 1995
Operation
Sec. 7, UNPA
Sec. 628, FAA
Total
UNTSO (Middle East)
11
0
11
UNIKOM (Iraq-Kuwait)
15
0
15
MINURSO (Western Sahara)
30
0
30
UNCRO (Croatia)
0
365
365
UNPREDEP (Macedonia)
248 [42%]
324 [58%]
559
UNPROFOR (Bosnia-Herzegovina)
0
3
3
UNMIH (Haiti)
453 [20%]
1,814 [80%]
2,267
UNOMIG (Georgia)
4
0
4
TOTAL
748 2,506
3,254
By the end of April 1996, with the U.N. Mission in Haiti (UNMIH) coming to an end, the number
of U.S. military personnel serving in U.N. peacekeeping operations had fallen to 712.
As of June 30, 2010, an estimated 89 U.S. personnel served under U.N. control in six operations.
Other than the civilian police in four operations, these were U.S. military personnel (see Table 4.)
The United States currently contracts with outside firms to provide U.S. civilian police, either
active duty on a leave of absence, former, or retired. They are hired for a year at a time and paid
by the contractor.51 These contracts are financed from Foreign Operations Act accounts.52 As of
50 See CRS Report RL31120, Peacekeeping: Military Command and Control Issues, by Edward F. Bruner and Nina M.
Serafino, for discussion of foreign command issues.
51 See http://www.state.gov/p/inl/rls/fs/113191.htm for information and links.
52 This is now the Department of State, Foreign Operations, and Related Programs Appropriations Act.
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June 30, 2010, a total of 100,645 uniformed personnel from 117 countries served in 15 U.N.
peacekeeping operations.53
Table 4. U.S. Personnel Under U.N. Control as of June 30, 2010
Operation Total
UNTSO (Middle East)
2 (obs.)
MINURCAT
2 (troop)
MONUC (Congo)
2 (obs.)
UNMIL (Liberia)
18 (5 troop, 3 obs., 10 police)
MINUSTAH (Haiti)
54 (45 police, 9 troop)
UNMIS (Sudan)
7 (police)
TOTAL
89a
Note: This table is based on data provided monthly by the United Nations and available at http://www.un.org/
Depts/dpko/dpko/contributors/. In November 2009, the terms used to identify personnel were changed, without
any guidance regarding definitions and parallels with the terms used for many years. Table 4 uses the traditional
terms, rather than the new ones.
a. The United States has four observers in UNAMI (Iraq), which is not a peacekeeping operation.
Other Peacekeeping Issues
A Peacekeeping Response to International Humanitarian Distress
Since 1991, internal instabilities and disasters in the Persian Gulf region and in Africa, and
conditions in the former Yugoslavia have prompted demands for the use of U.N. peacekeeping to
expedite peaceful settlement of internal conflicts or to ensure the delivery of humanitarian
assistance to starving and homeless populations within their countries. Some observers have
suggested that the principle of nonintervention, incorporated in Article 2, paragraph 7 of the U.N.
Charter, had been modified by Security Council Resolution 688 (1991), in which the Council
“insist(ed) that Iraq allow immediate access by international humanitarian organizations to all
those in need of assistance in all parts of Iraq.” Others cited Council Resolution 687 (1991), the
cease-fire resolution, which imposed on Iraq a number of requirements that might be viewed as
intervention into the territorial sovereignty and independence of that country.
While the U.N. Security Council had, in the past, been reluctant to approve humanitarian
assistance as a major or primary function of a peacekeeping operation, it has now moved away
from that position. The Council established protection for humanitarian operations in Somalia as
part of the major mandate for its operation there (UNOSOM) and added humanitarian protection
to an expanded mandate for the operation (UNPROFOR) in Bosnia and Herzegovina.54
53 This total includes 20 in UNAMI and 234 in UNAMA, both of which are missions under the Department of Political
Affairs, not U.N. peacekeeping operations.
54 On December 3, 1992, the Security Council acted, under Chapter VII of the U.N. Charter, to authorize the Secretary-
General and Member States cooperating “to use all necessary means to establish as soon as possible a secure
environment for humanitarian relief operations in Somalia.” The result was the Unified Task Force (UNITAF), a U.N.-
authorized operation under a U.S.-led unified command. This was not a U.N. peacekeeping operation, but cooperated
(continued...)
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Another variable of U.N. peacekeeping in instances of humanitarian distress has been the extent
to which peacekeepers can protect civilians, including those who come to the peacekeepers for
protection. Often, such protection had not been part of the mandate approved by the U.N.
Security Council and neither the composition of an operation nor its rules of engagement or
concept of operations allowed for such action. Two situations have been widely regarded as
significant examples of U.N. peacekeeping failures in the protection of civilians. The first was the
“1994 genocide in Rwanda” and the second was the “fall of Srebrenica” in July 1995 and the
killing of up to 200,000 people.55 Reports examining these failures have helped focus the
attention of U.N. officials and of U.N. member states, especially members of the U.N. Security
Council, on the need to prevent and to respond to this sort of situation. The continuing conditions
in Darfur, Sudan, however, reveal the difficulty of fashioning and implementing an effective U.N.
response in the face of continuing reports of genocide.
The Role of U.N. Peacekeeping in Monitoring Elections
Some authorities have called on the United Nations to organize, supervise, and/or monitor
elections in various countries. In the past, the United Nations had organized and carried out
elections and acts of self-determination pursuant to its Charter mandate for decolonization.
However, it had not responded affirmatively to many requests for organizing or conducting
elections in the peace and security domain. For example, in June 1989, Secretary-General Javier
Perez de Cuellar, when considering Nicaragua’s request for U.N. participation in its electoral
process, characterized U.N. acceptance of election supervision in an independent country as
“unprecedented.”
However, in 1991, the U.N. General Assembly authorized the Electoral Assistance Division in the
Department of Political Affairs to serve as a focal point for all U.N. electoral assistance activities.
This was in addition to the special peace and security situations when the U.N. Security Council
might approve U.N. participation in plebiscites or elections. For example, in the case of Namibia
(UNTAG, 1989-1990), Western Sahara (MINURSO, 1991-present), and East Timor (June-
September 1999), the election was an act of self-determination, as part of an overall conflict
settlement arrangement. These referenda or elections were similar to the traditional U.N. role in
the decolonization process.
In other instances, the United Nations has conducted elections monitoring in an independent U.N.
member state. U.N. conduct of elections in Cambodia (UNTAC, 1992-1994) were part of a
political settlement arrangement to bring about an end to the Cambodian conflict. In the cases of
Nicaragua and Haiti, the action was authorized and created by the U.N. General Assembly, not by
the U.N. Security Council. The U.N. Observer Mission in Nicaragua (ONUVEN) involved U.N.
civilian observers monitoring the election process in Nicaragua in 1989-1990 and did not include
military or security forces. It was, however, part of the efforts to achieve a peaceful settlement in
Central America. The case of election monitoring in Haiti in 1990-1991 did not include a role
clearly identified as U.N. peacekeeping, but the United Nations Observer Group for the
Verification of the Elections in Haiti (ONUVEH) included a security component that consisted of
64 security observers, 36 of whom were drawn from U.N. peacekeeping operations.
(...continued)
with the U.N. operation in Somalia (UNOSOM). UNITAF ended on May 4, 1993.
55 See http://www.un.org/Depts/dpko/dpko/reports.htm , for the reports: S/1999/1257, on Rwanda; and A/54/549 on
Srebrenica.
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U.S. Financing for U.N. Peacekeeping
There are three major ways by which Congress may finance U.S. contributions to U.N.
peacekeeping operations. First, Congress currently finances U.S. assessed contributions to these
operations through the Department of State authorization and appropriation bills (under
Contributions to International Peacekeeping Activities (CIPA) in the International Organizations
and Conferences account). These are the peacekeeping operations for which the U.N. General
Assembly creates a separate assessed account against which every U.N. member state is obligated
to pay a specific percent of the expenses of the operation. U.S. arrearages to peacekeeping
operations are associated with these assessed accounts.
Second, Congress formerly funded one U.N. operation—the U.N. Peacekeeping Force in Cyprus
(UNFICYP)—from the foreign operations authorization and appropriation bills (under
Peacekeeping Operations (PKO) in the Military Assistance account). The U.S. contribution was
funded this way because the Cyprus force was initially financed from voluntary contributions
from U.N. member nations. On May 27, 1993, the Security Council changed the basis of funding
for the force in Cyprus, from solely voluntary to assessed plus voluntary.56 Future funding for
U.S. contributions to UNFICYP has moved, in the Administration’s request, from the Foreign
Operations, Military Assistance, PKO account to the State Department, CIPA account. Finally,
Congress funds the U.S. contribution to some U.N. observer peacekeeping operations as part of
its regular budget payment to the United Nations. There is no separate U.N.-assessed account for
these groups. This is currently how the U.N. Truce Supervision Organization (UNTSO) and the
U.N. Military Observer Group in India and Pakistan (UNMOGIP) are funded.
Because U.N. peacekeeping requirements may arise out of sequence with the U.S. budget
planning cycle, the President and Congress have had to devise extraordinary methods for
acquiring initial funding for U.S. contributions to the operations. Over the past several years,
these included reprogramming from other pieces of the international affairs budget, such as
Economic Support Fund money obligated in past years for specific countries but not disbursed.
Another approach used was the transfer of funds to the international affairs budget from the
Department of Defense for funding U.N. peacekeeping operations. In recent years, the President
has requested and the Congress has appropriated funding for U.S. assessed contributions to new
or expanded peacekeeping operations through the supplemental appropriations process.
In addition, in 1994 and 1995, President Clinton proposed that U.S. assessed contributions for
peacekeeping operations, for which Chapter VII of the Charter is specifically cited in the
authorizing Security Council resolution, be financed under the Defense Department
authorization/appropriations bills. He proposed that the U.S. assessed contribution for any other
U.N. peacekeeping operations for which a large U.S. combat contingent is present also be
financed from Defense Department money. Congress did not support this proposal.
56 Voluntary payments by Cyprus and Greece reduce the totals required from assessed contributions.
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U.N. Proposals for Strengthening Peacekeeping
Agenda for Peace (1992)
As peacekeeping became an option of choice to resolve conflicts in the post-Cold War world,
proposals were made for strengthening the U.N. response to all aspects of this peace and security
challenge. On January 31, 1992, the U.N. Security Council, meeting at the heads of state and
government level, “invited” U.N. Secretary-General Boutros Boutros-Ghali to prepare “his
analysis and recommendations on ways of strengthening and making more efficient within the
framework and provisions of the Charter the capacity of the United Nations for preventive
diplomacy, for peacemaking and for peace-keeping.”57
The resultant 24-page report, An Agenda for Peace; Preventive Diplomacy, Peacemaking and
Peace-Keeping, was presented by the Secretary-General to the Council on June 14, 1992.58 On
peacekeeping, the Secretary-General noted that the
basic conditions for success remain unchanged: a clear and practicable mandate; the
cooperation of the parties in implementing that mandate; the continuing support of the
Security Council; the readiness of Member States to contribute the military, police and
civilian personnel, including specialists, required; effective United Nations command at
Headquarters and in the field; and adequate financial and logistic support.59
Among his recommendations on peacekeeping were greater use by member states of the Stand-by
Arrangements System; improved programs for training peacekeeping personnel, including
civilian, police, or military; and special personnel procedures to permit the “rapid transfer of
Secretariat staff members to service with peace-keeping operations.” He urged that a “pre-
positioned stock of basic peace-keeping equipment ... be established, so that at least some
vehicles, communications equipment, generators, etc., would be immediately available at the start
of an operation.”
After its initial positive reaction to the report [Statement by Council President, June 30, 1992], the
U.N. Security Council undertook an in-depth examination of the report over the following years,
starting on October 29, 1992. Thereafter, each month through May 1993, the Council met and the
Council President issued a statement on some aspect of the report and its recommendations.60 On
May 3, 1994, the Council President issued an extensive statement that dealt with criteria for
establishing new operations; the need to review ongoing operations; communication with non-
members of the Council, including troop contributing nations; stand-by arrangements; civilian
57 Statement by Council President, January 31, 1992. This was the first Council meeting at the “Summit” level. Heads
of state and government from 13 of the 15 member states attended; two Council members were represented at the
foreign minister level. Yearbook of the United Nations, 1992, p. 34. Also, U.N. document number S/23500.
58 The report, U.N. document number A/47/277-S/24111, can be found at http://www.un.org/Docs/SG/agpeace.html.
59 A/47/277, para. 50, p. 14-15.
60 October 29, 1992, on stand-by arrangements for more rapid access to peacekeeping personnel; November 30, 1992,
on fact-finding and preventive diplomacy; December 30, 1992, on special economic problems associated with
imposition of sanctions; January 28, 1993, on cooperation with regional arrangements and organizations; February 26,
1993, on humanitarian assistance and its relationship to peacemaking, peacekeeping, and peace-building; March 31,
1993, on the safety of U.N. forces and personnel; April 30, 1993, on post-conflict peace-building; and May 28, 1993,
on U.N. peacekeeping operations.
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personnel; training; command and control; and financial and administrative issues. This statement
mirrored the content of the May 1994 U.S. Presidential Decision Directive on Reforming
Multilateral Peace Operations (PDD 25).
Security Council follow-up related to the Agenda for Peace initiatives continued through 1998,
accompanied by debate and recommendations by the U.N. General Assembly and its Special
Committee on Peacekeeping Operations and its Informal Open-Ended Working Group on an
Agenda for Peace.61 While the Working Group did not produce final recommendations and
stopped meeting in 1996, the more formal Special Committee formally reviewed the report,
produced recommendations for action by the Secretary-General and by the General Assembly,
and requested further reports from the Secretary-General.
Among the resulting changes relating to U.N. peacekeeping were the following:
• Creation of a 24-hour operations or situation center;
• Transfer of the Field Operations Division from the Department of Administration
and Management to the Department for Peacekeeping Operations (DPKO);
• Establishment of a Peacekeeping Reserve Fund of $150 million to help with
financing for start-up of an operation;
• Adoption of a Convention on Protection of U.N. personnel;
• Creation of a military planning cell in DPKO;
• Improvement of three major departments related to peacekeeping (DPKO,
Department of Political Affairs, and Department of Humanitarian Affairs); and
• Creation of a Task Force on United Nations Operations to coordinate among
departments and provide the Secretary-General with options and
recommendations on policy issues.
Brahimi Panel Report (2000)
On August 23, 2000, a special Panel on United Nations Peace Operations, convened by U.N.
Secretary-General Kofi Annan, issued a report presenting its recommendations aimed at
improving the U.N.’s peace and security capabilities. Annan had asked the Panel to “assess the
shortcomings of the existing system and to make frank, specific and realistic recommendations
for change.”62 Some of the recommendations have been implemented, both those the Secretary-
General may carry out on his own and those requiring General Assembly authorization and/or the
provision of additional funds, including increasing staff levels in the Department of Peacekeeping
Operations. Other recommendations, however, especially those requiring expeditious Member
State commitments of personnel for deployment, have not been fully implemented.
61 The Informal Open-Ended Working Group on an Agenda for Peace was created in 1992 and stopped meeting in
1996. As the title indicated, participation was open to the entire U.N. membership. See http://www.globalpolicy.org/
component/content/article/225/32584.html. The Special Committee on Peacekeeping Operations was created by U.N.
General Assembly Resolution 2006 (XIX) in 1965 to undertake a comprehensive review of peacekeeping operations.
Its membership, expanded in 1996, numbered 124 member states in 2006.
62 See text of the nearly 70-page report at http://www.un.org/peace/reports/peace_operations/.
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Since 2004, reform of U.N. peacekeeping has become part of the overall review of the United
Nations, its capabilities and capacities in the 21st century, and the need to reform and renew the
organization. The December 2004 report of a High-Level Panel on Threats, Challenges, and
Responses convened by Secretary-General Annan recommended that “Member States should
strongly support” efforts of the Department of Peacekeeping Operations, “building on the ... work
of the Brahimi Panel on U.N. Peace Operations.” The Panel observed that “the demand for
personnel for both full-scale peace-enforcement missions and peacekeeping missions remains
higher than the ready supply. In the absence of a commensurate increase in available personnel,
United Nations peacekeeping risks repeating some of its worst failures of the 1990s.”63
U.N. Secretary-General Annan in his March 2005 reform proposals echoed the call for improved
deployment options with strategic reserves that could be rapidly employed.64 In addition, he
stated that the time was ripe for “the establishment of an interlocking system of peacekeeping
capacities that will enable the United Nations to work with relevant regional organizations in
predictable and reliable partnerships.” Annan also noted allegations of misconduct by U.N.
administrators and peacekeepers. He asserted that U.N. peacekeepers and peacebuilders have a
solemn responsibility to respect international law and fundamental human rights and especially
the rights of the people whom it is their mission to protect.
Prince Zeid Report (2005)
Later, in March 2005, a comprehensive report on sexual exploitation and abuse by U.N.
peacekeeping personnel was issued by the Secretary-General and his Special Adviser on this
issue.65 Prince Zeid’s report, A Comprehensive Strategy to Eliminate Future Sexual Exploitation
and Abuse in United Nations Peacekeeping Operations, recognized that both the United Nations
Secretariat and U.N. member States had responsibilities in resolving this problem. Its
recommendations were endorsed by the U.N. General Assembly on June 22, 2005, in
A/RES/59/300.
In September 2005, the 60th session of the U.N. General Assembly, meeting as a World Summit,
approved a 2005 World Summit Outcome, as A/RES/60/1. The Heads of State and Government
convened at this meeting urged “further development of proposals for enhanced rapidly
deployable capacities to reinforce peacekeeping operations in crises. We endorse the creation of
an initial operating capability for a standing police capacity to provide coherent, effective and
responsive start-up capability for the policing component of the United Nations peacekeeping
missions and to assist existing missions through the provision of advice and expertise.” [para. 92]
They also “underscore[d] the importance of the recommendations of the Adviser to the Secretary-
General on Sexual Exploitation and Abuse by United Nations Peacekeeping Personnel, and
63 High-Level Panel on Threats, Challenges, and Change. A More Secure World: Our Shared Responsibility. United
Nations, 2004. p. 68-69. See http://www.un.org/secureworld/report.pdf.
64 In Larger Freedom: Towards Development, Security and Human Rights for All. Report of the Secretary-General.
U.N. document A/59/2005 at http://www.un.org/largerfreedom/.
65 Media reports on this issue throughout 2004 and even earlier had led Annan in July 2004 to ask the Permanent
Representative of Jordan, His Royal Highness Prince Zeid Ra’ad Zeid Al-Hussein to act as his adviser and to assist in
addressing the problem. After the U.N. Special Committee on Peacekeeping Operations, in its 2005 report, asked
Annan for a “comprehensive report with recommendations on sexual exploitation and abuse by U.N. peacekeeping
personnel, Annan asked Prince Zeid to prepare the report, which was issued on March 24, 2005. See U.N. document
A/59/710, at http://www.un.org/Depts/dpko/CDT/reforms.html; includes links to statements, reports, and related
materials.
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urge[d] that those measures adopted in the relevant General Assembly resolutions based upon the
recommendations be fully implemented without delay.” [para. 96]
In November 2005, a Conduct and Discipline Team was set up in the Department of
Peacekeeping Operations (DPKO), and by the end of 2006, Conduct and Discipline Teams had
been established in seven peacekeeping operations and in U.N. missions in Burundi (BINUB),
Sierra Leone (UNIOSIL), and Afghanistan (UNAMA). According to a report reviewing the status
of U.N. measures for protection from sexual exploitation and sexual abuse, the Team at DPKO is
responsible for developing strategies for “addressing conduct and discipline” throughout DPKO
and for providing “oversight on the state of conduct and discipline for all categories of personnel
in all missions administered by the Department.”66
The teams in the missions are to
act as principal advisers to heads of mission on all conduct and discipline issues involving all
categories of personnel and implement measures to prevent misconduct, to enforce United
Nations standards of conduct and to ensure remedial action when it is required. The teams
also receive and monitor allegations of misconduct, including sexual exploitation and abuse,
forward the allegations to the appropriate investigating authorities and provide feedback to
victims and host populations on the outcome of investigations.
The teams also train U.N. personnel and host populations on the standards set forth in the
Secretary-General’s bulletin on sexual exploitation and abuse.
On May 29, 2007, U.N. Under Secretary-General for Peacekeeping Jean-Marie Guehenno
announced the resumption of discussions with U.N. member states on a “proposed memorandum
of understanding setting out standards” for peacekeepers. These standards were intended to
ensure that all would “have the same understanding of what is acceptable, what is not acceptable,
what is criminal, what is not.” In addition, he stated that “some countries may not have the same
standards or procedures for conducting investigations as the U.N.’s Office of Internal Oversight
Services (OIOS).” Mr. Guehenno observed that “some States have indicated they are opposed to
the introduction of such standards and he called on those unnamed countries to rethink their
positions.”67
On July 24, 2007, the U.N. General Assembly adopted Resolution 61/291, approving the U.N.
standards of conduct language to be included in the revised draft model memorandum of
understanding (MOU), to be used as the basis for negotiation with all troop-contributing
countries. Under this language, it is intended that all U.N. peacekeeping personnel agree to
conduct themselves in a professional and disciplined manner at all times; respect local laws,
customs and practices; treat host country inhabitants with respect, courtesy and
consideration; and act with impartiality, integrity and tact and report all acts involving sexual
exploitation and abuse. They also agree to encourage proper conduct among fellow
66 Special Measures for Protection from Sexual Exploitation and Sexual Abuse. Reportof the Secretary-General. U.N.
document A/61/957, p. 7.
67 Taken from U.N. News Service, May 29, 2007. Formal discipline standards for peacekeepers needed, say UN
official. Available at http://www.un.org/apps/news/printnews.asp?nid=22720. See also Press Conference on
International Day of United Nations Peacekeepers, May 29, 2007. Available at http://www.un.org/News/briefings/docs/
2007/070529_Guehenno.doc.htm
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peacekeeping personnel and to properly account for all money and property assigned to them
as mission members.68
During a January 2007 Security Council meeting, U.S. Acting U.N. Representative Alejandro
Wolff noted that the United States was “very troubled” by continued reports of sexual exploitation
and abuse by personnel participating in some U.N. missions. He noted that the organization had
responded to Prince Zeid’s report and recommendations, putting into place a number of
guidelines and procedures, standards of conduct, and policies of zero tolerance on sexual
exploitation and abuse by personnel of U.N. peacekeeping operations. He observed, however, that
a fundamental difficulty resulted from the fact that most personnel in U.N. peacekeeping
operations are provided by U.N. member states. As such, each member state is responsible for
enforcing standards of behavior of its personnel.69
On December 21, 2007, the U.N. General Assembly adopted a United Nations Comprehensive
Strategy on Assistance and Support to Victims of Sexual Exploitation and Abuse by United
Nations Staff and Related Personnel.70 After the decision, U.S. Adviser David Traystman made
the following statement:
The United States is very gratified to note that the General Assembly has now taken action
on this important pillar of the Organization’s response to sexual exploitation and abuse.
Victims of sexual exploitation and abuse by UN staff and related personnel will now receive
the assistance they need....
My delegation is especially pleased to note that in adopting this text, the international
community strongly condemns all acts of sexual exploitation and abuse and reiterates its
support for the Secretary-General’s zero tolerance policy.71
During a statement before the Fifth Committee of the Assembly in May 2008, Mr. Traystman
addressed the work of the Conduct and Discipline Teams:
The Teams are charged with the important task of implementing the Organization’s rules and
regulations concerning conduct and discipline. This includes the Organization’s three-
pronged strategy aimed at eliminating sexual exploitation and abuse, comprised of measures
aimed at prevention of misconduct, enforcement of UN standards of conduct, and remedial
action. These important functions are ‘core’ responsibilities that should be carried out by
permanent CDT capacities, both at Headquarters and in the field.72
Mr. Traystman continued, “We will continue to press for substantive training and disciplinary
actions by troop contributors for their national contingents to guarantee that the zero tolerance
policy on sexual exploitation and abuse is fully understood, respected and enforced.” Secretary of
State Condoleezza Rice, in a statement to the U.N. Security Council on June 19, 2008, followed
68 U.N. Press Release GA/10605, dated July 24, 2007, p. 1.
69 On January 5, 2007, U.N. Assistant Secretary-General for Peacekeeping Operations Jane Holl Lute noted that
between January 2004 and the end of November 2006, investigations completed against 319 peacekeeping personnel in
all missions, resulted in summary dismissals of 18 civilians and the repatriation of 17 police and 144 military
personnel. U.N. Press Briefing, January 5, 2007.
70 A/RES/62/214.
71 USUN Press Release # 392 (07), available at http://www.archive.usun.state.gov/press_releases/20071221_392.html.
72 USUN Press Release # 110 (08), available at http://www.archive.usun.state.gov/press_releases/20080508_110.html.
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up on this issue, noting, “While the individual perpetrator is ultimately responsible for the abuse,
member states are responsible for disciplining and holding their troops accountable.”73
Reorganization and Restructuring (2007)
Current discussions on U.N. reform in the peacekeeping area center around the proliferation of
U.N. responses to peace and security circumstances. On February 15, 2007, new U.N. Secretary-
General Ban Ki-moon announced his proposals for “strengthening the capacity of the
Organization to manage and sustain peace and security operations.”74 Ban proposed a
reconfiguration of the Department of Peacekeeping Operations into two departments: the
Department of Peace Operations and the Department of Field Support. He proposed that the
Department of Field Support be responsible for “the administration and management of field
personnel, procurement, information and communication technology and finances for United
Nations peace operations.” [para. 15] This would, he continued, “allow a separate, concentrated
Department of Peace Operations to focus on the work it needs to do: strategic as well as day-to-
day direction and management of peacekeeping operations; new mission planning;
implementation of policies and standards; and fostering partnerships with a broad range of United
Nations and non-United Nations actors, including regional organizations.” [para. 16]
He intended to maintain
unity of command and integration of effort at the field level by preserving the existing
overall authority of my special representatives and heads of mission over all mission
components, including the military, police and administrative components.... The Special
Representative ... or Head of Mission will have a single, clear reporting line to the Secretary-
General through the Under-Secretary-General for Peace Operations.... To ensure unity of
command and integration of effort at the Headquarters level, the Under-Secretary-General of
Field Support will report to and receive direction from the Under-Secretary-General for
Peace Operations on all issues that fall under the purview of United Nations peacekeeping.
[paras. 22-24]
He sought to set up, within the Department of Peace Operations, a public affairs unit that would
be responsible for “media relations, departmental publicity, external relations and corporate
messaging/internal communications.” This new unit would also provide advice on budgetary,
administrative, staffing and technical matters to public information components in the field.
[para. 46]
The new Department of Field Support would be responsible for “the management and
administration of information management capacity for peacekeeping, as well as for conduct and
discipline, and for providing secretariat support to the senior field leadership selection process.”
[para. 26] This Department would have the “analytical and information-processing capacity
required to prepare budget proposals and performance reports” although the Department of
Management would “retain the final authority to submit budgets to the Assembly.” [para. 37] In
addition, Ban intended to “vest authority for field support procurement with the Department of
Field Support by delegating procurement authority to that department as well as the authority to
73 USUN Press Release #154 (08), available at http://www.archive.usun.state.gov/press_releases/20080619_154.html.
74 Letter dated 15 February 2007 from the Secretary-General addressed to the President of the General Assembly. U.N.
document A/61/749*, see especially Annex I, p. 3-18.
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appoint procurement officers at Headquarters and in the field.... A common vendor database, a
joint vendor review committee, a common procurement manual ... will be maintained.” [para. 42]
On March 15, 2007, the U.N. General Assembly, in Resolution 61/256, supported the
restructuring of the Department of Peacekeeping Operations, including the establishment of the
Department of Field Support and the intention to name an Under-Secretary-General to head that
Department.75 The Assembly asked the Secretary-General to “submit a comprehensive report, as
soon as possible, elaborating on the restructuring of the Department of Peacekeeping Operations
and the establishment of the Department of Field Support, including functions, budgetary
discipline and full financial implications....”
On June 29, 2007, the U.N. General Assembly approved most of the restructuring plan and
established the Department of Field Support.76 In many instances, not as many new positions
were recommended, and the Assembly did not approve moving the field- or mission-related
procurement functions from the Department of Management to the Department of Field
Support.77 Most of the added positions were financed from the support account, that is, from the
budgets of individual peacekeeping operations, rather than as core function positions from the
U.N. regular budget. On March 14, 2008, Secretary-General Ban appointed Susana Malcorra of
Argentina to head the Department of Field Support. She took over from Jane Holl Lute, who had
been Officer-in-charge since the Department was established in July 2007.
The United States and Peacekeeping Proposals
The Clinton Administration initially supported collective security through the United Nations as a
centerpiece of its foreign policy. Later, President Clinton, in a September 1993 speech to the U.N.
General Assembly, called on the Security Council to review closely each proposal for an
operation before determining whether to establish it, saying that “the United Nations simply
cannot become engaged in every one of the world’s conflicts.” He supported “creation of a
genuine U.N. peacekeeping headquarters with a planning staff, with access to timely intelligence,
with a logistics unit that can be deployed on a moment’s notice, and a modern operations center
with global communications.” Clinton urged that U.N. operations be adequately and fairly
funded, saying he was “committed to work with the United Nations” in reducing the U.S.
assessment for peacekeeping.78 In May 1994, Clinton signed Presidential Decision Directive 25
on Reforming Peace Operations. The policy recommended 11 steps to strengthen U.N.
management of peacekeeping operations and offered U.S. support for strengthening the planning,
logistics, information, and command and control capabilities of the United Nations. The policy
also supported reducing the U.S. peacekeeping assessment from 31.7% to 25%.
In a May 16, 2000 statement to a U.N. General Assembly committee, U.S. Ambassador Richard
Holbrooke presented reform proposals aimed at strengthening U.N. capacities for U.N.
75 Note that the name of the DPKO was not changed to the Department of Peace Operations.
76 A/RES/61/279, Strengthening the capacity of the United Nations to manage and sustain peacekeeping operations.
The Department was established in July 2007.
77 See the 54-page report of the Advisory Committee on Administrative and Budgetary Questions for a detailed
accounting of the Assembly response to the Secretary-General’s proposals, as set forth further in his follow-on reports:
U.N. document A/61/937.
78 Speech on September 27, 1993, in Public Papers of the Presidents. William J. Clinton, 1993, vol 2, p. 1612-1618.
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peacekeeping and at changing the basis for financing U.N. peacekeeping.79 On August 24, 2000, a
statement by the State Department spokesman “commended” the work of the U.N. Panel on
Peace Operations [the Brahimi Panel], noting that “the United States has been one of the earliest
and most insistent voices calling for improvement in planning, the pace of deployment, and
overall effectiveness in peacekeeping.”
In December 2004, Congress mandated the establishment of a bipartisan Task Force on the
United Nations, to be organized by the U.S. Institute of Peace. The Task Force was to report to
Congress within six months on how to make the United Nations more effective in realizing the
goals of its Charter. It was chaired by Newt Gingrich, former Speaker of the House of
Representatives and by George J. Mitchell, former Majority Leader of the Senate. The report,
American Interests and U.N. Reform, was issued on March 24, 2005.80 The Task Force offered a
wide variety of comments and recommendations relating to United Nations peacekeeping. They
included the following:
The key question for the Task Force in the area of UN peacekeeping is whether we are
prepared to endorse the current practice of the United States and other members of the
Security Council in demanding that peacekeepers regularly engage in a broad range of robust
security activities. If so, then the United States and other governments must do much more to
enhance capacities if we wish to ensure substantial success. The Task Force believes that the
practical alternatives—to consign the United Nations to future failures, or to dramatically
reduce the United Nations’ role in efforts to manage conflict and build stable societies—are
unacceptable. [p. 90-91]
Member states “must substantially increase the availability of capable, designated forces,
properly trained and equipped, for rapid deployment to peace operations on a voluntary
basis. The Secretariat should enhance its capacity to coordinate increases in member state
contributions to the Stand-By Arrangements system.” [p. 97]
The Task Force noted that while “the United States formally participates in the United
Nations Stand-By Arrangements system, its participation is of only limited operational value
to the United Nations—as it provides only a very general list of U.S. capabilities.... [T]he
United States should consider upgrading its participation in this voluntary program” by
providing more detailed information about the support it might consider. [p. 97]
The United States should support (1) creation of a senior police force management unit to
conduct assessments and assist in the establishment of new peace operations; (2) assessed
funding for first-year, quick-impact projects in peace operations, as well as the full range of
early disarmament, demobilization, and reintegration assistance when those have been
identified in premission assessments as critical for success; and (3) the adoption of two-year
budgets for support of peacekeeping to ensure greater stability, permit more careful planning,
and reduce administrative burdens. [p. 97-98]
Concerned over reports of sexual exploitation and abuse by deployed U.N. peacekeepers and
drawing on the findings by Prince Zeid, in his Comprehensive Strategy report, the Task Force
urged that the United States
79 Holbrooke, Richard C. U.S. Permanent Representative to the United Nations, 5th Committee (on Administrative and
Budgetary Questions), May 16, 2000. USUN (U.S. Mission to the United Nations). Press Release #62 (00).
80 See text at http://www.usip.org/un/report/usip_un_report.pdf.
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strongly support implementation of reform measures designed to ensure uniform standards
for all civilian and military participants in peace operations; improve training programs
relating to sexual exploitation and abuse; increase deployment of women in peacekeeping
operations; encourage deployment of established (rather than ‘patched together’) units to
peacekeeping operations; impose accountability of senior managers; support effective data
collection and management; provide victims assistance; increase staff to enhance
supervision; and organize recreational activities for peacekeepers. Finally, states that prove
unwilling or unable to ensure discipline among their troops should not be permitted to
provide troops to peacekeeping missions. [p. 96]
Congress and United Nations Peacekeeping:
1991-2006
Overview
Congress has, over the years, used authorizations and especially appropriations bills to express its
views and enhance its oversight of U.S. executive branch actions and uses of United Nations
peacekeeping operations. This has ranged from diminishing to increasing U.S. assessed
contributions and linking release of U.S. contributions to reports on actions taken to improve
U.N. peacekeeping reform or other actions, not related to peacekeeping, by the United Nations. It
has requested to be kept informed on a monthly, an ad hoc, and annual basis of U.S. efforts taken
in the U.N. Security Council to create or to expand U.N. peacekeeping. It has tried to ensure that
U.S. companies engaged in activities that would be useful to the United Nations have equal
access to U.N. procurement efforts.
Table 5. U.S. Contributions to U.N. Peacekeeping as Requested and Enacted,
FY1988-FY2006
(in millions of $)
Fiscal Year
Requested
Supplemental
Enacted
Cyprus
1988 — — 29.400
7.312
1989 29.000 — 141.000
7.312
1990 — — 81.079
8.837
1991 247.400 —
133.521
8.836
1992 201.292
350.000 464.202
8.374
1993 460.315
293.000 460.315
9.000
401.607
1994 619.736
670.000 670.000 —
1995 533.304
Rejected
672.000
533.304
—
1996 445.000 —
359.000
—
1997a 425.000 —
352.400
—
1998b 286.000 —
256.632
—
1999c 231.000 —
231.000
—
2000 235.000
Rejected
107.000
498.100
—
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Fiscal Year
Requested
Supplemental
Enacted
Cyprus
2001 738.666 —
844.139
—
844.139
2002d 844.139
43.000
Req. 23.034 —
2003 725.981 —
673.710
—
2004 350.200
245.000 695.056
—
483.544
2005 650.000
780.000
Req
680.000e —
1,022.275
2006 1,035.500
69.8
Req. 129.800f
Note: Except for UNTSO and UNMOGIP, U.S. assessed contributions to U.N. peacekeeping operations are
funded from the CIPA account, State Department. U.S. money for UNFICYP was original y financed by voluntary
contributions, funded through the Foreign Operations Act.
a. “Requested” includes $142.4 million for arrears payment; “Enacted” includes $50 million for arrears.
b. Both “Requested” and “Enacted” include $46 million for arrears payment.
c. $11.55 million of “Enacted” was transferred to the CIO account, leaving $219.450 million.
d. $43 million requested, March 21, 2002, in Emergency FY2002 Supplemental Appropriation. P.L. 107-206
provided $23,034,000. Included in the Enacted figure is $42.206 million, which was transferred from the
CIPA to the CIO account, leaving $801.933 million for allocation.
e. $50 million of the $680 million appropriated was transferred to the PKO account, leaving $630 million from
the FY2005 Supplemental, for an FY2005 total of $1,113,544,832.
f.
FY2006 Actual of $1,152.075 reflects rescission of 0.28% provided through the Science, State, Justice,
Commerce, and Related Agencies Appropriations Act, 2006 (P.L. 109-108) and the general rescission of
1.0% provided through the Emergency Supplemental Appropriations Act to Address Hurricanes in the Gulf
of Mexico and Pandemic Influenza, 2006 (P.L. 109-148, Division B) [a total of $119.279 million]. FY2006
Actual also includes $129.8 million provided through the Emergency Supplemental Appropriations Act for
Defense, the Global War on Terror, and Hurricane Recovery, 2006 (P.L. 109-234).
Congress provided initial U.S. contributions for the U.N. Iraq-Kuwait Observation Mission in
1991 (P.L. 102-55). Funds for U.S. contributions for U.N. peacekeeping operations and also for
the portion of U.S. arrearages to be paid from FY1992 money were authorized and appropriated
in 1991 (P.L. 102-138; P.L. 102-140) and additional funds were made available in 1992 for the
rapidly increasing number of peacekeeping operations (P.L. 102-266; P.L. 102-311; P.L. 102-368;
and P.L. 102-395). This funding was important as demands for new U.N. actions worldwide
increased.
During 1992, some in Congress focused on finding new sources of funding for U.S. contributions
to U.N. peacekeeping obligations while others explored new directions for the United Nations in
the area of peace and security. Senator Paul Simon introduced a bill, for example, suggesting that
the United States finance its peacekeeping contributions from the defense budget function, as a
larger and more reliable source.81 Proponents of this proposal pointed to the extent to which U.N.
peacekeeping advances U.S. national security interests. Section 1342 of the Defense
Authorization Act, P.L. 102-484, authorized the Secretary of Defense to obligate up to $300
81 S. 2560, “A bill to reclassify the cost of international peacekeeping activities from international affairs to national
defense” Introduced, April 9, 1992, Senator Paul Simon, 102nd Congress. Hearings held, June 9, 1992, Senate
Committee on Governmental Affairs.
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million from defense appropriations to, among other things, fund U.S. peacekeeping contributions
if the funding is not available from the State Department’s CIPA account. Congress, in P.L. 102-
484, asked the President for a report on the proposals made in “An Agenda for Peace.” President
George Bush sent that report to Congress on January 19, 1993.82
In 1993, in contrast, Congress did not provide all the funding requested by the President for
financing U.S. contributions to U.N. peacekeeping. Congress appropriated $401.6 million of the
$619.7 million requested in the CIPA account in the State Department Appropriations Act,
FY1994 (P.L. 103-121, October 27, 1993). The Foreign Operations Act included $75,623,000 of
the $77,166,000 requested for Peacekeeping Operations under the Military Assistance account
(P.L. 103-87, September 3, 1993). Finally, Congress did not appropriate the $300 million
requested in the Department of Defense budget for DOD peacekeeping support.
Further, Congress’s concerns in this area were expressed in a series of requirements included in
the conference report on State Department appropriations. They included:
• Recommending that the Administration review thoroughly the current process of
committing to peacekeeping operations.
• Expecting the Administration to notify the United Nations that the United States
will not accept an assessment greater than 25% for any new or expanded
peacekeeping commitments after the date of enactment of this act.
• Expecting the State Department in its FY1995 budget submission to include an
annual three-year projection of U.S. peacekeeping costs and submit a detailed
plan identifying U.S. actions needed to correct policy and structural deficiencies
in U.S. involvement with U.N. peacekeeping activities.
• Expecting the Secretary of State to notify both appropriations committees 15
days in advance, where practicable, of a vote by the U.N. Security Council to
establish any new or expanded peacekeeping operation.
• Expecting the notification to include the total estimated cost, the U.S. share, the
mission and objectives, duration and estimated termination date, and the source
of funding for the U.S. share.
Similar concerns and requirements were placed in statutory language in the Defense
Appropriations Act, FY1994 (Section 8153, P.L. 103-139, November 11, 1993) and the National
Defense Authorization Act, FY1994 (Title XI, P.L. 103-160, November 30, 1993).
In 1994, the State Department appropriations bill (P.L. 103-317, August 26, 1994) included the
requested $533.3 million in the FY1995 CIPA account and $670 million for the FY1994 CIPA
supplemental appropriations. The foreign operations appropriations legislation (P.L. 103-306,
August 23, 1994) also contained the requested $75 million for peacekeeping and peace support
and a provision allowing a transfer of $850,000 to IMET for training of other countries’ troops for
U.N. peacekeeping duty. The FY1995 National Defense Authorization bill (H.R. 4301) and the
FY1995 DOD Appropriations Bill (H.R. 4650) were enacted without the $300 million requested
to finance U.S.-assessed contributions to three U.N. operations.
82 Letter to Congressional Leaders Transmitting the Report on the Recommendations of the United Nations Secretary-
General, January 19, 1993. Letter at http://bushlibrary.tamu.edu/research/public_papers.php?id=5197&year=1993&
month=all.
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Congress, in early 1996, responded to the President’s February 1995 request by appropriating
$359 million ($445 million requested) for FY1996 CIPA funding (P.L. 104-134, April 26, 1996)
and $70 million ($100 million requested) for the PKO account (P.L. 104-107, February 12, 1996).
Congress rejected the President’s request for $672 million in FY1995 emergency supplemental
funding in the CIPA account. Congress also rejected the Administration’s proposal that part ($65
million) of the U.S. assessed contributions to two U.N. peacekeeping operations in which U.S.
military personnel participated, Haiti (UNMIH) and Macedonia (UNPREDEP), be funded from
Defense Department appropriations.
Congress, in 1996, provided $352.4 million for U.S. assessments to U.N. peacekeeping accounts
in the Omnibus Consolidated Appropriations Act, FY1997 (P.L. 104-208). This included $50
million for U.S. peacekeeping arrears accumulated in 1995. Release of the arrears funding
depended on an Administration certification that two of three U.N. non-peacekeeping-related
actions occur: (1) savings of $100 million in biennial expenses of five U.N. Secretariat divisions;
(2) reduction in the number of U.N. staff by December 31, 1997, by at least 10% of the number
employed on January 1, 1996; and (3) adoption of a budget outline for 1998-1999 lower than the
current budget level of $2.608 billion. In addition, conferees expected that up to $20 million in
the account would be available for contingencies related to African crises. Use of these funds was
subject to Committee review procedures.
Furthermore, Congress stipulated that none of the funds in the CIPA account shall be spent for
any new or expanded U.N. peacekeeping mission unless the appropriate committees are notified,
at least 15 days before a U.N. Security Council vote. The notification should provide the
estimated cost, length of mission, and planned exit strategy. A reprogramming of funds is to be
submitted, including the source of funds for the mission and a certification that American
manufacturers and suppliers are given opportunities equal to those given to foreign sources to
provide equipment, services, and materials for U.N. peacekeeping activities. Congress
appropriated $65 million for the PKO account, but stipulated that none of the funds shall be
obligated or expended, except as provided through regular notification procedures of the
Appropriations committees.
In 1997, Congress appropriated $256 million ($286 million requested) for the FY1998 CIPA
(including $46 million for prior year payments/arrears) and $77.5 million ($90 million requested)
for the FY1998 PKO account. Release of $46 million for arrears payments was contingent on
passage of an authorization package linking arrears payments to specific U.N. reforms. Release of
part of the PKO funds, for the Multilateral Force and Observers (MFO), was contingent on the
Secretary of State filing a report on the status of efforts to replace the Director-General of the
MFO (letter sent to Congress, March 18, 1998).
In 1998, Congress appropriated the requested $231 million for U.S. assessed contributions to
U.N. peacekeeping operations (CIPA) and $76.5 million ($83 million requested) for international
peacekeeping activities (PKO). Congress, however, did not include funds ($921 million) sought
in an FY1998 supplemental to pay U.N. and international organization arrears in FY1999 ($475
million) and FY2000 ($446 million).
In 1999, Congress appropriated $500 million for payment of U.S. assessed contributions to U.N.
peacekeeping accounts in the State Department Appropriations Act and $153 million for
voluntary contributions to international peacekeeping activities in the Foreign Operations
Appropriations Act, both of which were incorporated by reference into the Omnibus Consolidated
Appropriations Act, 2000, P.L. 106-113.
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Congress also sent the President H.R. 3194 (106th Congress), the State Department Authorization
Act for FY2000-FY2001 (H.R. 3427), which authorized $500 million for the CIPA account for
FY2000 and “such sums as may be necessary for FY2001” and contained a number of
peacekeeping-related provisions. One provision required an annual report to the United Nations
on all U.S. costs (“assessed, voluntary, and incremental”) incurred in support of all U.N. Security
Council passed peace activities and required the President to request the United Nations to
compile and publish a report on the costs incurred by all U.N. members in support of U.N.
peacekeeping activities. Another provision amended the U.N. Participation Act requiring the
President to obtain timely U.N. reimbursement for U.S. goods and services valued at over $3
million per fiscal year, per operation, provided to the United Nations. Another section codified in
the U.N. Participation Act language previously enacted on consultations and reports on United
Nations Peacekeeping Operations. Lastly, this legislation provided for U.S. arrears payments of
$819 million to the United Nations for regular budget and peacekeeping accounts for FY1998,
FY1999, and FY2000. In addition, section 913 provided for the forgiveness of $107 million in
amounts owed by the United Nations to the United States in reimbursements for peacekeeping
troops. The primary benchmarks relating to peacekeeping included a 25% ceiling on
peacekeeping assessments and no funding for or development of a U.N. standing army.
In 2000, Congress appropriated $846 million for the FY2001 CIPA account, in response to the
President’s request of $738.6 million for FY2001 and an FY2000 supplemental of $107 million.
Congress did not approve the supplemental for FY2000. In June 2000, the House Appropriations
Committee, in recommending a smaller appropriation, expressed its “gravest concern” over what
it called “the Administration’s tendency to ... extend moribund missions and to establish and
expand missions irrespective of Congressional input or the availability of funding to pay for
them.” The $134 million requested for the FY2001 PKO account was reduced in the Foreign
Operations appropriations bill to $127 million (P.L. 106-429).
On October 5, 2001, President Bush signed legislation amending the Foreign Relations
Authorization Act, Fiscal Years 2000-2001 (P.L. 107-46). This bill revised a condition prohibiting
the obligation of appropriated funds for payment of U.S. arrearages for assessed contributions to
the United Nations until the share of the budget for each assessed U.N. peacekeeping operation
does not exceed 28.15% for any single U.N. member. On November 28, 2001, the President
signed H.R. 2500, appropriating funds for the State Department, including the amount requested
for the FY2002 CIPA account (P.L. 107-77). The law includes a provision requiring that 15%
($126,620,850) of the $844,139,000 appropriated for CIPA remain available until September 30,
2003. On January 10, 2002, the President signed H.R. 2506, providing $135 million ($150
million requested) in voluntary contributions for the FY2002 PKO account under the Foreign
Operations Act.
On March 21, 2002, President Bush, in his Emergency FY2002 Supplemental Appropriations
request (H.Doc. 107-195), included $43 million for the CIPA account, “to meet projected
increased costs for U.N. peacekeeping operations. The United States has a clear national interest
in resolving multi-state conflicts and encouraging the evolution of stable democracies in countries
in which U.N. peacekeeping missions are operational.” Congress provided $23,034,000 for
“increased assessments” for the U.N. operation in the Congo in H.R. 4775, which was signed on
August 2, 2002 (P.L. 107-206).
On September 30, 2002, the President signed the Foreign Relations Authorization Act, Fiscal
Years 2002-2003 (P.L. 107-228), in which Congress authorized $844 million for U.S. assessed
contributions in CIPA and amended provisions relating to the 25% assessment level condition and
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cap on payment of U.S. assessed contributions to U.N. peacekeeping operations. On February 20,
2003, the President signed the FY2003 Consolidated Appropriations Resolution (P.L. 108-7),
which provided $673,710,000 for the CIPA account ($725.9 million requested) and $120,250,000
for the PKO account ($108.8 million requested). The conferees provided that, as requested by the
President, 15% of the amount in the CIPA account (approx. $101 million) be available through
September 30, 2004. This was due to “demonstrated unpredictability of the requirements ... from
year to year and the nature of multi-year operations” with “mandates overlapping the [U.S.] ...
fiscal year.”
On April 24, 2003, the Senate Foreign Relations Committee, in recommending S. 925,
authorized, for FY2004, the requested $550.2 million to pay U.S. assessed contributions to U.N.
peacekeeping accounts. The Committee set the assessment limit for U.S. peacekeeping
contributions beyond CY2004 at 27.4%. The Committee also asked the Secretary of State to
assess U.N. implementation of the Brahimi Panel recommendations on U.N. peacekeeping
capabilities reform and U.S. support of U.N. progress in this area (S.Rept. 108-39). On July 16,
2003, the House passed H.R. 1950, authorizing $550.2 million, as requested, for the CIPA
account and setting the peacekeeping assessment cap for CY2005 and CY2006 at 27.1%. An
authorization bill was not enacted in 2003.
On July 23, 2003, the House passed H.R. 2799, appropriating for FY2004, the requested $550.2
million for CIPA. The Senate Appropriations Committee, on September 5, 2003, recommended
$482,649,000 for the CIPA account (S. 1585). Committee and floor recommendations for the
PKO account ranged from $84.9 million (S. 1426) to $85 million (H.R. 2800) to $110 million
(H.R. 1950). The FY2004 Consolidated Appropriations bill, signed on January 23, 2004 (P.L.
108-199), Div. B, provided $550,200,000 (including $454,842,000 in new direct appropriations
and $95,358,000 in prior year unobligated balances) for the CIPA account and in Div. C, Foreign
Operations, $74,900,000 for the PKO account. On November 6, 2003, the President had signed
the Emergency Supplemental Appropriations for Defense and for Reconstruction of Iraq and
Afghanistan for FY2004 (P.L. 108-106) which added $245 million to the CIPA account for
assessed costs of U.N. peacekeeping in Liberia and $50 million to the PKO account to support
multilateral peacekeeping needs in Iraq and Afghanistan.
On July 1, 2004, the House Appropriations Committee reported H.R. 4754, including the State
Department Appropriations bill for FY2005, providing $650 million, as requested, for the CIPA
account. The bill does not include requested language to make a portion of appropriations under
CIPA available for two fiscal years. On July 8, 2004, the House passed this bill, including the
requested CIPA funds. On July 15, 2004, the House passed H.R. 4818, the Foreign Operations
Appropriations Act, providing the requested $104 million for the PKO account. On September 15,
2004, the Senate Appropriations Committee reported S. 2809, including the State Department
Appropriations bill, providing $574 million for the CIPA account and on September 16, 2004, the
Committee reported S. 2812, providing the requested amount for the PKO account in Foreign
Operations Appropriations. On September 23, 2004, the Senate, after incorporating S. 2812 into
H.R. 4818 as an amendment, passed H.R. 4818, by voice vote.
For FY2005, Congress provided $490 million for CIPA and $104 million for PKO (FY2005
Consolidated Appropriations Act, P.L. 108-447, December 8, 2004). The $490 million was
reduced to $483,544,832 by an across-the-board cut of 0.80% and a Division B cut of 0.54%. The
$104 million for the PKO account was cut 0.80% to $103,168,000. The peacekeeping assessment
cap for CY2005 was set at 27.1% in P.L. 108-447. In 2005, the President signed H.R. 1268 (P.L.
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109-13, May 11, 2005), an FY2005 Supplemental that provided $680 million for CIPA for
FY2005 ($50 million of this was transferred to the PKO account, leaving $630 million available).
On November 22, 2005, the President signed H.R. 2862 which included, in the State Department
Appropriations Act, FY2006, the requested $1,035,500,000 for the CIPA account, of which 15%
shall be available until September 30, 2007 (P.L. 109-108). The actual amount available, after a
recision, was $1,022,275,000. The Foreign Operations Appropriations Act, FY2006, was enacted,
with $175 million for the PKO account (P.L. 109-102, November 14, 2005). On February 16,
2006, President Bush had requested, in an FY2006 supplemental, an additional $69.8 million for
CIPA and $123 million for PKO, provided that such sums (of the PKO funds) as may be
necessary may be transferred to and merged with CIPA for peacekeeping operations in Sudan. On
June 15, 2006, Congress sent to the President H.R. 4939, providing $129.8 million for the CIPA
account and $178 million for the PKO account.83
On December 26, 2007, the President had signed into law H.R. 2764, the Consolidated
Appropriations Act, 2008, Division J of which was the Department of State, Foreign Operations
and Related Programs Appropriations Act, FY2008.84 This Act provided $1,700,500,000
[$1,690,517,000] for the CIPA account and $263,230,000 [$261,381,000] for the PKO account.85
This compares with the President’s request for FY2008 of $1,107,000,000 for U.S. assessed
contributions to U.N. peacekeeping operations, in the CIPA account, and $221,200,000 for the
PKO account. In addition, in October, the President had requested, in a FY2008 Supplemental, an
additional $723,600,000 for CIPA, as emergency requirements.86 Thus, the President’s CIPA
request for FY2008 totaled $1,830,600,000. The Act also included language raising the
peacekeeping assessment cap to 27.1% for assessments made in calendar year 2008. Payment of
U.S. contributions to U.N. peacekeeping operations had been limited to a level of 25% for
assessments made in calendar years 2006 and 2007.
83 Emergency Supplemental Appropriations Act for Defense, the Global War on Terror, and Hurricane Recovery, 2006,
H.R. 4939, P.L. 109-234, signed June 15, 2006.
84 P.L. 110-161.
85 An across-the-board rescission reduced the amount available. The figure in brackets represents the amount available
after application of the rescission.
86 FY2008 Supplemental, for U.S. assessed contributions to the AU/U.N. Hybrid Operation in Darfur (UNAMID).
Congress provided, in H.R. 2764, $468 million in emergency funding in the CIPA account. An additional $333,600,000
remains pending in an emergency supplemental before Congress.
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Appendix A. U.N. Peacekeeping Operations:
A Chronological List
Name of Operation
Acronym and Service Dates
Location
U.N. Truce Supervision
UNTSO 1948-
Middle East
Organization in Palestine
U.N. Military Observer Group
UNMOGIP 1949-
Jammu, Kashmir
in India and Pakistan
and Pakistan
U.N. Emergency Force I
UNEF I 1956-1967
Gaza; Egyptian
side in Sinai
U.N. Observer Group in Lebanon
UNOGIL June-Dec. 1958
—
U.N. Operation in the Congo
ONUC 1960-1964
—
U.N. Security Force in West New Guinea
UNSF Oct. 1962-Apr. 1963
West Irian
U.N. Yemen Observer Mission
UNYOM July 1963-Sept. 1964
—
U.N. Peacekeeping Force in Cyprus
UNFICYP 1964-
—
Mission of Represent. of the
DOMREP May 1965-Oct. 1966
—
Sec’ty-Gen’l in the Dominican Republic
U.N. India/Pakistan Observer Mission
UNIPOM Sept. 1965-Mar. 1966
India-Pakistan
border
U.N. Emergency Force II
UNEF II 1973-1979
Suez Canal sector;
Sinai Peninsula
U.N. Disengagement Observer Force
UNDOF 1974-
Israel-Syria:
Golan Heights
U.N. Interim Force in Lebanon
UNIFIL 1978-
Southern Lebanon
U.N. Good Offices Mission in
UNGOMAP Apr. 1988-Mar.
—
Afghanistan and Pakistan
1990
U.N. Iran-Iraq Military Observer Mission
UNIIMOG 1988-1991
—
U.N. Angola Verification Mission
UNAVEM Jan. 1989-May 1991
—
U.N. Transition Assistance Group
UNTAG Apr. 1989-Mar. 1990
Namibia and Angola
U.N. Observer Group in
ONUCA Nov. 1989-Jan. 1992
Costa Rica,
Central America
El Salvador,
Guatemala,
Honduras,
Nicaragua
U.N. Iraq-Kuwait Observation Mission
UNIKOM Apr. 1991-Oct. 6,
—
2003
U.N. Observer Mission in El Salvador
ONUSAL May 1991-Apr. 1995
—
U.N. Angola Verification Mission II
UNAVEM II May 1991-Feb. 1995
—
U.N. Mission for the Referendum
MINURSO Apr. 1991-
—
in Western Sahara
U.N. Advance Mission in Cambodia
UNAMIC Oct. 1991-Mar. 1992
—
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Name of Operation
Acronym and Service Dates
Location
U.N. Protection Force
UNPROFOR Feb. 1992; March
Former
1995-Jan. 1996
Yugoslavia:
Croatia, Bosnia,
“Macedonia”; B&H
U.N. Transitional Authority in Cambodia
UNTAC Feb. 1992-Oct. 1994
—
U.N. Operation in Somalia I
UNOSOM Apr. 1992-Apr. 1993
—
U.N. Operation in Mozambique
ONUMOZ Dec. 1992-Jan. 1995
—
U.N. Operation in Somalia II
UNOSOM II May 1993-March
—
1995
U.N. Observer Mission Uganda-Rwanda
UNOMUR June 1993-Sept. 1994
Uganda
U.N. Observer Mission in Georgia
UNOMIG Aug. 1993-June 2009
—
U.N. Observer Mission in Liberia
UNOMIL Sept. 1993-Sept. 1997
—
U.N. Mission in Haiti
UNMIH Sept. 1993-June 1996
—
U.N. Assistance Mission for Rwanda
UNAMIR Oct. 1993-March 1996
—
U.N. Aouzou Strip Observer Group
UNASOG May 4-June 13, 1994
Chad and Libya
U.N. Mission of Observers in Tajikistan
UNMOT Dec. 1994-May 15,
—
2000
U.N. Angola Verification Mission III
UNAVEM III Feb. 1995-June 1997
—
U.N. Confidence Restoration Operation in
UNCRO March 1995-Jan. 1996
—
Croatia
U.N. Preventive Deployment Force
UNPREDEP March 1995-Feb.
“Macedonia”
1999
U.N. Mission in Bosnia and Herzegovina
UNMIBH Dec. 1995-Dec. 31,
Bosnia &
(Includes Intl. Police Task Force (IPTF))
2002
Herzegovina
U.N. Transitional Administration for E.
UNTAES Jan. 1996-Jan.1998
Croatia
Slavonia, Baranja & W. Sirmium
U.N. Mission of Observers in the Prevlaka
UNMOP Jan. 1996-Dec. 15, 2002
Croatia
U.N. Support Mission in Haiti
UNSMIH June 1996-July 1997
—
U.N. Verification Mission in Guatemala
MINUGUA Jan. 20-May 1997
—
U.N. Observer Mission in Angola
MONUA July 1997-Feb. 1999
—
U.N. Transition Mission in Haiti
UNTMIH Aug.-Nov. 1997
—
U.N. Civilian Police Mission in Haiti
MIPONUH Dec.1997-March
—
2000
U.N. Civilian Police Support Group-Croatia
UNPSG Jan.-Oct. 15, 1998
—
U.N. Mission in the Central African Republic
MINURCA March 27, 1998-Feb.
—
15, 2000
U.N. Observer Mission in Sierra Leone
UNOMSIL July 1998-Oct. 1999
—
U.N. Interim Administration Mission in
UNMIK June 10, 1999-
—
Kosovo
U.N. Observer Mission in the Democratic
MONUC Aug. 6, 1999-June 30,
—
Republic of the Congo
2010
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Name of Operation
Acronym and Service Dates
Location
U.N. Mission in Sierra Leone
UNAMSIL Oct. 22, 1999-
—
Dec. 31, 2005
U.N. Transitional Administration in East Timor
UNTAET 1999-2002
—
U.N. Mission in Ethiopia and Eritrea
UNMEE Sept. 15, 2000-July 31,
—
2008
U.N. Mission of Support in East Timor
UNMISET May 20, 2002-
—
May 20, 2005
U.N. Mission in Liberia
UNMIL Sept. 19, 2003-
—
U.N. Mission in Cote d’Ivoire
UNOCI April 4, 2004-
—
U.N. Operation in Burundi
ONUB June 1, 2004-Dec. 31,
—
2006
U.N. Stabilization Mission in Haiti
MINUSTAH June 1, 2004-
—
U.N. Mission in the Sudan
UNMIS March 24, 2005-
—
U.N. Integrated Mission in Timor-Leste
UNMIT August 25, 2006-
—
African Union/United Nations Hybrid
UNAMID July 31, 2007;
Darfur, Sudan
Operation in Darfur
started December 31, 2007
U.N. Mission in the Central African
MINURCAT September 25,
Chad and the
Republic and Chad
2007-
Central African
Republic
U.N. Organization Stabilization Mission
MONUSCO July 1, 2010-
—
in the Democratic Republic of the Congo
Note: The Names of Operations in bold are still in existence.
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Appendix B. U.N. Peacekeeping Operations:
Numbers Created Annually, 1948-2010
Year—Number
Operation and Dates
1948—one
U.N. Truce Supervision Organization in Palestine (UNTSO) 1948-
1949—one
U.N. Military Observer Group in India and Pakistan (UNMOGIP) 1949-
1956—one
U.N. Emergency Force I (UNEF I) 1956-1967
1958—one
U.N. Observer Group in Lebanon (UNOGIL) June-Dec. 1958
1960s—six
U.N. Operation in the Congo (ONUC) 1960-1964
U.N. Security Force in West New Guinea (UNSF) Oct. 1962-Apr. 1963
U.N. Yemen Observer Mission (UNYOM) July 1963-Sept. 1964
U.N. Peacekeeping Force in Cyprus (UNFICYP) 1964-
Mission of Representative of the Secretary - General in the Dominican Republic
(DOMREP) May 1965-Oct. 1966
U.N. India/Pakistan Observer Mission (UNIPOM) Sept. 1965-Mar. 1966
1970s—three
U.N. Emergency Force II (UNEF II) 1973-1979
U.N. Disengagement Observer Force (UNDOF) 1974-
U.N. Interim Force in Lebanon (UNIFIL) 1978-
1988—two
U.N. Good Offices Mission in Afghanistan and Pakistan (UNGOMAP) Apr. 1988-Mar. 1990
U.N. Iran-Iraq Military Observer Mission (UNIIMOG) 1988-1991
1989—three
U.N. Angola Verification Mission (UNAVEM) Jan. 1989-May 1991
U.N. Transition Assistance Group (UNTAG) Apr. 1989-Mar. 1990
U.N. Observer Group in Central America (ONUCA) Nov. 1989-Jan. 1992
1991—five
U.N. Iraq-Kuwait Observation Mission (UNIKOM) Apr. 1991-Oct. 6, 2003
U.N. Observer Mission in El Salvador (ONUSAL) May 1991-Apr. 1995
U.N. Angola Verification Mission II (UNAVEM II) May 1991-Feb. 1995
U.N. Mission for the Referendum in Western Sahara (MINURSO) Apr. 1991-
U.N. Advance Mission in Cambodia (UNAMIC) Oct. 1991-Mar. 1992
1992—four
U.N. Protection Force (UNPROFOR) Feb. 1992; March 1995-Jan. 1996
U.N. Transitional Authority in Cambodia (UNTAC) Feb. 1992-Oct. 1994
U.N. Operation in Somalia I (UNOSOM) Apr. 1992-Apr. 1993
U.N. Operation in Mozambique (ONUMOZ) Dec. 1992-Jan. 1995
1993—six
U.N. Operation in Somalia II (UNOSOM II) May 1993-March 1995
U.N. Observer Mission Uganda-Rwanda (UNOMUR) June 1993-Sept. 1994
U.N. Observer Mission in Georgia (UNOMIG) Aug. 1993-June 2009
U.N. Observer Mission in Liberia (UNOMIL) Sept. 1993-Sept. 1997
U.N. Mission in Haiti (UNMIH) Sept. 1993-June 1996
U.N. Assistance Mission for Rwanda (UNAMIR) Oct. 1993-March 1996
1994—two
U.N. Aouzou Strip Observer Group (UNASOG) May 4-June 13, 1994
U.N. Mission of Observers in Tajikistan (UNMOT) Dec. 1994-May 15, 2000
1995—four
U.N. Angola Verification Mission III (UNAVEM III) Feb. 1995-June 1997
U.N. Confidence Restoration Operation in Croatia (UNCRO) March 1995-Jan. 1996
U.N. Preventive Deployment Force (UNPREDEP) March 1995-Feb. 1999
U.N. Mission in Bosnia and Herzegovina (Includes Intl. Police Task Force (IPTF))
(UNMIBH) Dec. 1995-Dec. 31, 2002
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Year—Number
Operation and Dates
1996—three
U.N. Transitional Administration for E. Slavonia, Baranja & W. Sirmium (UNTAES) Jan.
1996-Jan.1998
U.N. Mission of Observers in the Prevlaka (UNMOP) Jan. 1996-Dec. 15, 2002
U.N. Support Mission in Haiti (UNSMIH) June 1996-July 1997
1997—four
U.N. Verification Mission in Guatemala (MINUGUA) Jan. 20-May 1997
U.N. Observer Mission in Angola (MONUA) July 1997-Feb. 1999
U.N. Transition Mission in Haiti (UNTMIH) Aug.-Nov. 1997
U.N. Civilian Police Mission in Haiti (MIPONUH) Dec.1997-March 2000
1998—three
U.N. Civilian Police Support Group - Croatia (UNPSG) Jan.-Oct. 15, 1998
U.N. Mission in the Central African Republic (MINURCA) March 27,
1998-Feb. 15, 2000
U.N. Observer Mission in Sierra Leone (UNOMSIL) July 1998-Oct. 1999
1999—four
U.N. Interim Administration Mission in Kosovo (UNMIK) June 10, 1999-
U.N. Observer Mission in the Democratic Republic of the Congo (MONUC) Aug. 6, 1999-
June 30, 2010
U.N. Mission in Sierra Leone (UNAMSIL) Oct. 22, 1999-Dec. 31, 2005
U.N. Transitional Administration in East Timor (UNTAET) 1999-2002
2000—one
U.N. Mission in Ethiopia and Eritrea (UNMEE) Sept. 15, 2000-July 31, 2008
2002—one
U.N. Mission of Support in East Timor (UNMISET) May 20, 2002-May 20, 2005
2003—two
U.N. Mission in Cote d’Ivoire (MINUCI) May 2003-April 2004
U.N. Mission in Liberia (UNMIL) Sept. 19, 2003-
2004—three
U.N. Mission in Cote d’Ivoire (UNOCI) April 4, 2004-
U.N. Operation in Burundi (ONUB) June 1, 2004-Dec. 31, 2006
U.N. Stabilization Mission in Haiti (MINUSTAH) June 1, 2004-
2005—one
U.N. Mission in the Sudan (UNMIS) March 24, 2005-
2006—one
U.N. Integrated Mission in Timor-Leste (UNMIT) August 25, 2006
2007—two
U.N. Mission in the Central African Republic and Chad (MINURCAT) September
25, 2007-
African Union/United Nations Hybrid Operation in Darfur (UNAMID) July 31,
2007 [December 31, 2007)-
2010—one
U.N. Organization Stabilization Mission in the Democratic Republic of the
Congo (MONUSCO) July 1, 2010-
Note: The names of operations in bold are still in existence.
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Appendix C. United Nations Peacekeeping over the
Years: Statistical Data for Comparative Analysis,
1978-2010
Table C-1. United Nations Peacekeeping over the Years: Statistical Data for
Comparative Analysis, 1978-2010
No. of
U.N. Costs
U.S.
U.S.
Operations
Calendar Year
Contribution
Personnel, as
Year
as of 12/31
in US $
U.N. Personnela
CY, in U.S. $
of 12/31
1978 6
202,000,000
16,700
61,572,000
1988 7
266,000,000
13,000
36,712,000
1989 10
635,000,000
17,900
173,312,000
1990 8
464,000,000
13,700
132,004,101
1991 11
490,000,000
15,300
144,016,219 87
1992 13
1,767,000,000
52,200
544,592,595 436
1993 17
3,059,000,000
78,744
(7/31) 794,237,165 2,629
1994 17
3,342,000,000
78,111
(9/30) 991,400,000 963
1995 16
3,364,000,000
68,894
(8/31) 411,137,688 2,851
1996 16
1,405,000,000
29,140
(1/31) 333,958,992 759
1997 15
1,160,000,000
24,952
(1/31) 372,570,005 644
1998
16
995,000,000
14,347 (11/30)
245,971,114
583 (as
of 11/30)
1999 17
1,324,000,000
18,460
237,401,601 677
2000 15
2,139,000,000
38,501
(11/30) 518,583,902 885
2001 15
2,700,000,000
47,108 1,328,471,746 750
2002 13
2,702,000,000
46,799
(4/30) 794,235,696 631
2003 13
2,727,000,000
45,815
651,584,282 518
2004 16
3,645,000,000
64,720 1,160,431,052 429
2005 15
4,737,000,000
70,103 1,161,345,476 387
2006 16
not
available
80,094 1,118,372,949 324
2007 17
not
available
83,854 1,700,034,239 316
2008 16
not
available
91,382 2,239,240,356 91
2009
15
not available
97,858
not available
73
2010 15
not available
100,645
not available
89
(as of June
(as of June 30)
(as of June 30)
30)
Sources:
Number of Operations
United Nations and Appendix A.
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U.N. Costs
Global Policy Forum, New York, http://www.globalpolicy.org/finance/tables/pko/expendarrears.htm
United Nations Department of Peacekeeping Operations
U.N. Personnel
United Nations, Department of Peacekeeping Operations, http://www.un.org/Depts/dpko/dpko/
Global Policy Forum, http://www.globalpolicy.org/security/peacekpg/data/pcekprs.htm
U.S. Contributions
U.N. document: Status of Contributions, as of 31 December of any given year, ST/ADM/SER.B./—
U.S. Personnel
U.N. Department of Peacekeeping Operations, http://www.un.org/Depts/dpko/dpko/
a. Figure is as of December 31, unless highest of year is very different. In 1993, 12/31 figure is 69,961; in 1994,
12/31 is 69.356. In 1996, 12/31 figure is 24,919; in 1997, 12/31 is 14,879. In 2002, 12/31 figure is 39,652.
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Appendix D. U.N. Peacekeeping: Status of U.S.
Assessed Contributions for Calendar Year 2008
Table D-1. U.N. Peacekeeping: Status of U.S. Assessed Contributions for Calendar
Year 2008
Arrears as of
2008
Payments in 2008
Outstanding as of
Name of Operations
12/31/07
Assessments
(Paid+Credits=Total)
12/31
CURRENT OPERATIONS
UNDOF (Middle East)
10,692,337
11,611,130
10,899,312 + 711,818
10,692,337
CR = 11,611,130
UNIFIL (Lebanon)
67,189,886
176,786,509
59,594,188 + 2,152,828
182,229,379
CR = 61,747,016
MINURSO (W. Sahara)
48,941,791
12,787,979
17,839,473 + 757,469
43,132,828
CR = 18,596,942
UNFICYP (Cyprus)
11,969,341
8,776,538
8,609,189 + 167,349 CR 11,963,341
= 8,776,538
UNOMIG (Georgia)
11,436,001
7,840,656
11,931,786 + 497,388
6,847,483
CR = 12,429,174
UNMIK (Kosovo)
89,728,377
56,345,205
51,855,399 + 3,512,579
90,705,604
CR = 55,367,978
MONUC (DR Congo)
98,770,242
312,775,634
286,863,323 +
108,619,280
16,063,273 CR =
302,926,596
UNMEE (Ethiopia/Eritrea)
12,629,286
16,248,620
13,976,673 + 4,698,778
10,202,455
CR = 18,675,451
UNMIL (Liberia)
154,674,631
164,001,708
277,279,582 +
19,352,570
22,045,187 CR =
299,324,769
UNOCI (Cote d’Ivoire)
14,253,053
134,257,884
123,154,000 +
15,265,301
10,091,636 CR =
133,245,636
MINUSTAH (Haiti)
159,551,086
156,184,688
245,212,048 +
60,146,261
10,377,465 CR =
255,589,513
UNMIS (Sudan)
34,502,405
224,193,537
293,500,999 +
145,418,905
41,609,038 CR =
335,110,037
UNMIT (Timor Leste)
3,771,739
49,555,591
39,361,563 + 10,194,026 3,771,739
CR = 49,555,589
UNAMID (Darfur, Sudan)
0
570,679,428
570,679,428
0
MINURCAT (Central
0 105,604,559
105,604,559
0
African Rep., Chad)
Subtotals
718,110,175
2,007,649,666
2,116,361,522 +
708,347,483
122,878,834 CR =
2,239,240,356
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Arrears as of
2008
Payments in 2008
Outstanding as of
Name of Operations
12/31/07
Assessments
(Paid+Credits=Total)
12/31
CLOSED OPERATIONS
UNIKOM (Iraq, Kuwait)
446,593
not applicable
0
446,593
UNMIBH (Bosnia & Herz.)
33,825,345
not applicable
0
33,825,345
MONUA (Angola)
34,794,215
not applicable
0
34,794,215
UNPROFOR (former
43,492,191 not
applicable
0
43,492,191
Yugoslavia)
UNAMIR (Rwanda)
341,372
not applicable
0
341,372
UNTAC (Cambodia)
11,465,637
not applicable
0
11,465,637
UNTAES (Croatia) (includes
8,699,793 not
applicable
0
8,699,793
CPSG)
UNPREDEP (Macedonia)
1,232,081
not applicable
0
1,232,081
UNTMIH/MIPONUH (Haiti)
19,385,377
not applicable
0
19,385,377
MINURCA (Central African
35,538,048 not
applicable
0
35,538,048
Republic)
UNOSOM II (Somalia)
20,340,516
not applicable
0
20,340,516
ONUMOZ (Mozambique)
6,680,111
not applicable
0
6,680,111
UNAMSIL (Sierra Leone)
(35,034,530)
not applicable
0
(35,034,530)
UNTAET and UNMISET (E.
19,087,929 not
applicable
0
26,557,475a
Timor)
ONUB (Burundi)
(13,804,918)
not applicable
0
(21,821,203)b
Subtotals
235,329,208
0
242,798,754
TOTALS 953,439,383
2,007,649,666
2,116,361,522
+
951,146,237
122,878,834 CR =
2,239,240,356
Regular Budget
392,673,605
453,338,391
451,527,359
394,484,638
Sources: United Nations. Status of Contributions, as of December 31, 2007, and December 31, 2008.
Notes: Total Paid includes $122,878,834 in credits applied to the accounts of current operations. These credits
are from unencumbered balances and applied per resolutions of the U.N. General Assembly and/or as the
contributing member state requests.
a. This increased figure in contributions outstanding results from the reversal of $8,498,037 in credits for
UNMISET and the addition/application of $1,028,491 in credits.
b. This increase results from the addition of $8,016,285 in credits.
The Outstanding columns do not include $6,090,877 in contributions outstanding for UNAMET
(E. Timor) and $144,390 in contributions outstanding for MINUGUA (Guatemala). Both these
operations were primarily under the control of the Department of Political Affairs rather than the
Department of Peacekeeping Operations.
Credits totaling $17,893,368 were available for the United States but not used, as of
December 31, 2008, for five operations not included in this table: UNTAG (Namibia):
$11,991,064; ONUSAL (El Salvador): $2,677,182; UNMIH (Haiti): $1,448,861; UNOMIL
(Liberia): $883,052; and UNMOT (Tajikistan): $893,209.
2008 assessments figure is for bills received during CY2008.
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United Nations Peacekeeping: Issues for Congress
Appendix E. U.N. Peacekeeping: Status of U.S.
Assessed Contributions for Calendar Year 2007
Arrears as of
2007
Payments in 2007
Outstanding as
Name of Operation
12/31/06
Assessments
(Paid+Credits=Total)
of 12/31
CURRENT OPERATIONS
UNDOF (Middle East)
10,240,549
10,848,663
8,901,919 + 1,494,956 CR
10,692,337
= 10,396,875
UNIFIL (Lebanon)
44,819,753
314,077,867
286,895,715 + 4,812,019
67,189,886
CR = 291,707,734
MINURSO (W. Sahara)
42,640,805
15,882,107
8,389,000 +1,192,151CR =
48,941,791
9,581,121
UNFICYP (Cyprus)
11,680,084
6,793,538
6,192,098 + 312,183CR =
11,969,341
6,504,281
UNOMIG (Georgia)
8,169,786
12,110,140
7,566,012 + 1,277,913 CR
11,436,001
= 8,843,925
UNMIK (Kosovo)
34,374,961
87,147,367
28,425,050 + 3,368,901CR
89,728,377
= 31,793,951
MONUC (DR Congo)
108,157,695
300,678,361
273,490,056 + 36,575,479
98,770,242
CR = 310,065,814
UNMEE (Ethiopia/Eritrea)
17,987,632
32,135,196
276,922,063 + 9,571,479
12,629,286
CR = 37,493,542
UNMIL (Liberia)
49,269,150
285,070,261
162,811,437 + 16,853,343
154,674,631
CR = 179,664,780
UNOCI (Cote d’Ivoire)
6,199,581
145,683,323
123,648,808 + 13,981,043
14,253,053
CR = 137,629,851
MINUSTAH (Haiti)
42,580,441
212,658,238
81,978,500 + 13,709,013
159,551,085
CR = 95,687,513
UNMIS (Sudan)
20,718,278
339,431,960
162,637,374 + 52,093,959
145,418,905
CR = 214,731,333
UNMIT (Timor Leste)
0
76,390,599
72,618,860
3,771,739
Subtotals
396,838,715
1,838,907,620
1,500,476,892 +
829,026,674
155,242,439 CR =
1,655,719,331
CLOSED OPERATIONS
UNIKOM (Iraq, Kuwait)
446,593
not applicable
0
446,593
UNMIBH (Bosnia & Herz.)
33,825,345
not applicable
0
33,825,345
MONUA (Angola)
34,794,215
not applicable
0
34,794,215
UNPROFOR (former Yugoslavia)
43,492,191
not applicable
0
43,492,191
UNAMIR (Rwanda)
341,372
not applicable
0
341,372
UNTAC (Cambodia)
11,465,637
not applicable
0
11,465,637
UNTAES (Croatia) (includes CPSG)
8,699,793
not applicable
0
8,699,793
UNPREDEP (Macedonia)
1,232,081
not applicable
0
1,232,081
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United Nations Peacekeeping: Issues for Congress
Arrears as of
2007
Payments in 2007
Outstanding as
Name of Operation
12/31/06
Assessments
(Paid+Credits=Total)
of 12/31
UNTMIH/MIPONUH (Haiti)
19,385,377
not applicable
0
19,385,377
MINURCA (Central African Republic)
35,538,048
not applicable
0
35,538,048
UNOSOM II (Somalia)
20,340,516
not applicable
0
20,340,516
ONUMOZ (Mozambique)
6,680,111
not applicable
0
6,680,111
UNAMSIL (Sierra Leone)
2,741,650
not applicable
2,741,650 CR =
(35,034,530)
2,741,650
UNTAET (E. Timor)
27,585,966
not applicable
8,498,037 CR =
19,087,929
8,498,037
ONUB (Burundi)
14,203,942
not applicable
14,652,875 + 18,422,346
(13,804,918)
CR = 33,075,221
Subtotals
not applicable
14,652,875 + 29,662,033
235,329,208
CR = 44,314,908
TOTALS 657,611,552
1,515,129,767 +
1,064,355,882
184,904,472 CR =
1,700,034,239
Regular Budget
291,408,623
493,166,839
391,901,857
392,673,605
Sources: United Nations. Status of Contributions, as of December 31, 2006, and December 31, 2007.
Notes: Total Paid includes $155,242,439 in credits applied to the accounts of current operations. These credits
are from unencumbered balances and applied per resolutions of the U.N. General Assembly and/or as the
contributing member state requests.
The Outstanding columns do not include $6,090,877 in contributions outstanding for UNAMET
(E. Timor) and $144,390 in contributions outstanding for MINUGUA (Guatemala). Both these
operations were primarily under the control of the Department of Political Affairs rather than the
Department of Peacekeeping Operations.
Credits totaling $17,863,368 were available for the United States but not used, as of
December 31, 2007, for five operations not included in this table: UNTAG (Namibia):
$11,991,064; ONUSAL (El Salvador): $2,677,182; UNMIH (Haiti): $1,418,861; UNOMIL
(Liberia): $883,052; and UNMOT (Tajikistan): $893,209.
2007 assessments figure is for bills received during CY2007.
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United Nations Peacekeeping: Issues for Congress
Appendix F. U.N. Peacekeeping: Status of U.S.
Assessed Contributions for Calendar Year 2006
(As of December 31, 2006) (in U.S. dollars)
Payments
Arrears as of
2006
in 2006
Outstanding
Name of Operation
12/31/05
Assessments
(Paid+credits=Total)
as of 12/31
CURRENT OPERATIONS
UNDOF (Middle East)
9,547,922
11,383,937
10,165,762 +
10,240,549
525,548 CR =
10,691,220
UNIFIL (Lebanon)
49,133,032
24,059,941
26,037,442 +
44,819,753
2,335,778 CR =
28,373,220
MINURSO (W. Sahara)
46,292,356
8,067,075
11,325,597 +
42,640,805
393,029 CR =
11,718,626
UNFICYP (Cyprus)
11,185,065
6,759,756
6,033,957 +
11,680,084
230,780 CR =
6,264,737
UNOMIG (Georgia)
5,832,236
8,694,487
5,865,412 +
8,169,786
491,525 CR =
3,356,937
UNMIK (Kosovo)
32,605,948
30,350,278
25,819,150 +
34,374,961
2,762,115 CR =
28,581,265
MONUC (DR Congo)
237,268,962
151,955,730
262,844,000 +
108,157,695
18,222,997 CR =
281,066,997
UNMEE (Ethiopia/Eritrea)
4,617,849
38,803,163
16,912,846 +
17,987,632
8,520,434 CR =
25,433,280
UNMIL (Liberia)
0
150,263,782
72,294,273 +
49,269,150
28,700,359 CR =
100,994,632
UNOCI (Cote d’Ivoire)
7,672,964
104,409,106
90,676,151 +
6,199,581
15,206,338 CR =
105,882,489
MINUSTAH (Haiti)
7,731,806
121,874,560
85,264,664 +
42,580,441
1,761,261 CR =
87,025,925
ONUB (Burundi)
9,883,508
67,795,938
71,859,532 +
14,203,942
8,384,028 CR =
80,243,500
UNMIS
(Sudan) 120,481,581
214,472,520 313,492,800
+
20,718,278
743,023 CR =
314,235,823
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United Nations Peacekeeping: Issues for Congress
Payments
Arrears as of
2006
in 2006
Outstanding
Name of Operation
12/31/05
Assessments
(Paid+credits=Total)
as of 12/31
CLOSED OPERATIONS
UNIKOM (Iraq, Kuwait)
4,195,464
not applicable
3,748,871 CR =
446,593
3,748,871
UNMIBH (Bosnia & Herz.)
33,825,345
not applicable
0
33,825,345
MONUA (Angola)
34,794,215
not applicable
0
34,794,215
UNPROFOR (former
43,492,191 not
applicable
0 43,492,191
Yugoslavia)
UNAMIR (Rwanda)
341,372
not applicable
0
341,372
UNTAC (Cambodia)
11,465,637
not applicable
0
11,465,637
UNTAES (Croatia)
8,699,793 not
applicable
0 8,699,793
(includes CPSG)
UNPREDEP (Macedonia)
1,232,081
not applicable
0
1,232,081
UNTMIH/MIPONUH
19,385,377 not
applicable
0 19,385,377
(Haiti)
MINURCA (Central
35,538,048 not
applicable
0 35,538,048
African Republic)
UNOSOM II
20,340,516
not applicable
0
20,340,516
ONUMOZ (Mozambique)
6,680,111
not applicable
0
6,680,111
UNAMSIL (Sierra Leone)
29,051,537
not applicable
26,309,887 CR =
2,741,650
26,309,887
UNTAET (E. Timor)
32,031,356
not applicable
4,445,390 CR =
27,585,966
4,445,390
TOTALS 823,326,272
938,890,273
995,591,586
+
657,611,552
122,781,363 CR =
1,118,372,949
Regular Budget
251,851,905
423,464,855
383,908,137
291,408,623
Sources: United Nations. Status of Contributions, as of December 31, 2005, and December 31, 2006.
Notes: Total Paid includes $122,781,363 in credits applied to the accounts of current operations. These credits
are from unencumbered balances and applied per resolutions of the U.N. General Assembly and/or as the
contributing member state requests.
The Outstanding columns do not include $6,090,877 in contributions outstanding for UNAMET
(E. Timor) and $144,390 in contributions outstanding for MINUGUA (Guatemala). Both these
operations were primarily under the control of the Department of Political Affairs rather than the
Department of Peacekeeping Operations.
Credits totaling $17,893,368 were available for the United States but not used, as of
December 31, 2006, for five operations: UNTAG (Namibia): $11,991,064; ONUSAL (El
Salvador): $2,677,182; UNMIH (Haiti): $1,448,861; UNOMIL (Liberia): $883,052; and UNMOT
(Tajikistan): $893,209.
2006 assessments figure is for bills received during CY2006.
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United Nations Peacekeeping: Issues for Congress
Appendix G. U.N. Peacekeeping: Status of U.S.
Assessed Contributions for Calendar Year 2005
(As of December 31, 2005) (in U.S. dollars)
Payments in 2005
Arrears as
2005
(Paid + Credits = Outstanding
Name of Operation
of 12/31/04
Assessments
Total)
as of 12/31
CURRENT OPERATIONS
UNDOF (Middle East)
9,547,922
11,489,156
11,063,876 +
9,547,922
425,280 CR =
11,489,156
UNIFIL (Lebanon)
33,944,819
26,145,644
8,698,650 +
49,133,032
2,258,781 CR =
10,957,431
MINURSO (W. Sahara)
45,757,724
12,560,662
10,992,403 +
46,292,356
1,033,627 CR =
12,026,030
UNFICYP (Cyprus)
15,046,190
3,695,203
7,369,168 +
11,185,065
187,160 CR =
7,556,328
UNOMIG (Georgia)
5,832,236
9,335,273
9,040,588 +
5,832,236
294,685 CR =
9,335,273
UNAMSIL (Sierra
54,208,472
30,102,575
40,832,296 +
29,051,537
Leone)
14,427,214 CR =
55,259,510
UNMIK (Kosovo)
32,605,948
75,125,888
73,932,842 +
32,605,948
1,193,046 CR =
75,125,888
UNTAET (E. Timor)
46,970,273
465,631
10,582,746 +
32,031,356
4,821,802 CR =
15,404,548
MONUC (DR Congo)
109,117,869
421,508,396
284,593,111 +
237,268,962
8,764,192 CR =
293,357,303
UNMEE
4,617,849
51,668,829
46,281,571 +
4,617,849
(Ethiopia/Eritrea)
5,387,258 CR =
51,668,829
UNMIL (Liberia)
0
151,468,628
146,922,081 +
0
4,546,547 CR =
151,468,628
UNOCI (Cote
24,607,928 88,081,377
101,458,849
+
7,672,964
d’Ivoire)
3,557,492 CR =
105,016,341
MINUSTAH (Haiti)
48,214,389
96,784,188
133,342,343 +
7,731,806
3,924,428 CR =
137,266,771
ONUB (Burundi)
52,257,852
51,094,378
90,941,118 +
9,883,508
2,527,604 CR =
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United Nations Peacekeeping: Issues for Congress
Payments in 2005
Arrears as
2005
(Paid + Credits = Outstanding
Name of Operation
of 12/31/04
Assessments
Total)
as of 12/31
93,468,722
UNMIS (Sudan)
not applicable
252,426,299
131,944,718
120,481,581
CLOSED OPERATIONS
UNIKOM (Iraq,
4,195,464 not
applicable
0
4,195,464
Kuwait)
UNMIBH (Bosnia &
33,825,345 not
applicable
0
33,825,345
Herz.)
MONUA (Angola)
34,794,215
not applicable
0
34,794,215
UNPROFOR (former
43,492,191 not
applicable
0
43,492,19
Yugoslavia)
UNAMIR (Rwanda)
341,372
not applicable
0
341,372
UNTAC (Cambodia)
11,465,637
not applicable
0
11,465,637
UNTAES (Croatia)
8,699,793 not
applicable
0
8,699,793
(includes CPSG)
UNPREDEP
1,232,081 not
applicable
0
1,232,081
(Macedonia)
UNTMIH/MIPONUH
19,385,377 not
applicable
0
19,385,377
(Haiti)
MINURCA (Central
35,538,048 not
applicable
0
35,538,048
African Republic)
UNOSOM II
20,340,516
not applicable
0
20,340,516
ONUMOZ
6,680,111 not
applicable
0
6,680,111
(Mozambique)
TOTALS
702,719,621
1,281,952,127
1,107,996,360 + 823,326,272
53,349,116 CR =
1,161,345,476
Regular Budget
240,520,860
439,611,612
428,280,567
251,851,905
Sources: United Nations. Status of Contributions, as of December 31, 2004, and December 31, 2005.
Notes: Total Paid includes $53,349,116 in credits applied to the accounts of current operations. These credits
are from unencumbered balances and applied per resolutions of the U.N. General Assembly and/or as the
contributing member state requests.
The Outstanding columns do not include $6,090,877 in contributions outstanding for UNAMET
(E. Timor) and $144,390 in contributions outstanding for MINUGUA (Guatemala). Both these
operations were primarily under the control of the Department of Political Affairs rather than the
Department of Peacekeeping Operations.
Credits totaling $17,893,368 were available, as of December 31, 2005, for the United States for
five operations: UNTAG (Namibia): $11,991,064; ONUSAL (El Salvador): $2,677,182; UNMIH
(Haiti): $1,448,861; UNOMIL (Liberia): $883,052; and UNMOT (Tajikistan): $893,209.
2005 assessments figure is for bills received during CY2005.
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United Nations Peacekeeping: Issues for Congress
Appendix H. U.N. Peacekeeping: Status of U.S.
Assessed Contributions for Calendar Year 2004
(As of December 31, 2004) (in U.S. dollars)
Payments in 2004
Arrears as of
2004
(Paid+ Credits = Outstanding as
Name of Operation
12/31/03
Assessments
Total)
of 12/31
CURRENT OPERATIONS
UNDOF (Middle East)
9,547,922
11,319,478
10,810,260 +
9,547,922
509,218 CR =
11,319,478
UNIFIL (Lebanon)
43,086,385
27,756,248
12,551,792 +
33,944,819
24,346,022 CR =
36,897,814
MINURSO (W. Sahara)
41,847,257
15,556,030
10,042,459 +
45,757,724
1,603,104 CR =
11,645,562
UNFICYP (Cyprus)
11,185,065
10,974,723
6,842,744 +
15,046,190
270,854 CR =
7,113,598
UNOMIG (Georgia)
5,832,236
9,504,531
8,401,568 +
5,832,236
1,102,962 CR =
9,504,530
UNAMSIL (Sierra
29,051,537 151,213,452 118,726,153
+
54,208,472
Leone)
7,330,364 CR =
126,056,517
UNMIK (Kosovo)
32,605,948
118,025,210
115,115,953 +
32,605,948
2,909,257 CR =
118,025,210
UNTAET (E. Timor)
31,853,058
54,813,924
35,769,688 +
46,970,273
3,927,021 CR =
39,696,709
MONUC (DR Congo)
10,473,943
245,887,340
111,312,570 +
109,117,869
35,930,844 CR =
147,243,414
UNMEE
4,617,849
67,014,457
60,415,945 +
4,617,849
(Ethiopia/Eritrea)
6,598,512 CR =
67,014,457
UNMIL (Liberia)
not applicable
380,841,360
380,841,360
0
UNOCI (Cote d’Ivoire)
not applicable
106,631,162
82,023,234
24,607,928
MINUSTAH (Haiti)
not applicable
107,371,405
59,157,016
48,214,389
ONUB (Burundi)
not applicable
93,890,282
41,632,430
52,257,852
CLOSED OPERATIONS
UNIKOM (Iraq, Kuwait)
5,352,181
not applicable
1,156,717 CR
4,195,464
UNMIBH (Bosnia &
38,359,814
not applicable
4,534,469 CR
33,825,345
Herzegovina)
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United Nations Peacekeeping: Issues for Congress
Payments in 2004
Arrears as of
2004
(Paid+ Credits = Outstanding as
Name of Operation
12/31/03
Assessments
Total)
of 12/31
MONUA (Angola)
41,309,040
not applicable
6,514,825 CR
34,794,215
UNPROFOR (former
45,333,637
not applicable
1,841,446 CR
43,492,191
Yugoslavia)
UNOMIL (Liberia)
1,090,869
not applicable
1,090,869 CR
(883,052)
UNAMIR (Rwanda)
4,257,231
not applicable
3,915,859 CR
341,372
UNMOT (Tajikistan)
219,791
not applicable
219,791 CR
(893,209)
UNTAES (Croatia)
10,713,712
not applicable
2,013,919 CR
8,699,793
(includes CPSG)
UNPREDEP
2,203,908
not applicable
971,827 CR
1,232,081
(“Macedonia”)
UNTMIH and
19,385,377 not
applicable
0
19,385,377
MIPONUH (Haiti)
MINURCA (Central
35,538,048 not
applicable
0
35,538,048
African Republic)
UNTAC (Cambodia)
11,465,637
not applicable
0
11,465,637
UNOSOM II (Somalia)
20,340,516
not applicable
0
20,340,516
ONUMOZ
6,680,111 not
applicable
0
6,680,111
(Mozambique)
TOTALS 497,326,681
1,400,799,282
1,160,431,052
702,719,621
Regular Budget
267,960,871
362,852,996
390,293,007
240,520,860
Sources: United Nations. Status of Contributions, as of December 31, 2003, and December 31, 2004.
Notes: Total Paid includes $1,053,643,172 in actual payments and $106,787,880 in credits applied against
outstanding contributions. These credits are from unencumbered balances and applied per resolutions of the
U.N. General Assembly and/or as the contributing member state requests.
The Outstanding columns do not include $6,090,877 in contributions outstanding for UNAMET
(E. Timor) and $144,390 in contributions outstanding for MINUGUA (Guatemala). Both these
operations were primarily under the control of the Department of Political Affairs rather than the
Department of Peacekeeping Operations.
Credits totaling $17,863,368 were available, as of December 31, 2004, for the United States for
five operations: UNTAG (Namibia): $11,991,064; ONUSAL (El Salvador): $2,677,182; UNMIH
(Haiti): $1,418,861; UNOMIL (Liberia): $883,052; and UNMOT (Tajikistan): $893,209.
UNOMIL and UNMOT are listed as credits under Contributions Outstanding, as of 12/31/04,
within parenthesis.
2004 assessments figure is for bills received during CY2004.
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Author Contact Information
Marjorie Ann Browne
Specialist in International Relations
mbrowne@crs.loc.gov, 7-7695
Congressional Research Service
54