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Updated August 1, 2018
United Nations Issues: Congressional Representatives to the
U.N. General Assembly
The annual session of the United Nations (U.N.) General
U.S. engagement in the United Nations. UNPA does not
Assembly is held at U.N. Headquarters in New York City.
require congressional participation in sessions of the
Generally, the President appoints one Democrat and one
General Assembly, but anticipates and permits participation
Republican to serve as U.S. representatives to the session,
of Members of Congress, among other U.S. representatives,
alternating each year between the House and Senate. At the
in such sessions. Section 2 of the act sets out the authorities
72nd session of the Assembly, which opened in September
for U.S. representation the United Nations. Specifically,
2017, two House members (Barbara Lee and Christopher
Section 2(a) specifies that the President, by and with the
Smith) served as congressional representatives. Two
advice and consent of the Senate, shall designate not more
members of the Senate will likely serve as representatives
than five U.S. representatives to attend a specified session
to the 73rd Assembly session, which is scheduled to open on
or specified sessions of the General Assembly. UNPA does
September 18, 2018.
not specify whether Members are eligible to be appointed
as U.S. representatives; however, Section 2(g) prohibits
Overview of the U.N. General Assembly
compensation for Members serving as U.S. representatives,
The U.N. General Assembly is composed of all 193 U.N.
signaling that Members might serve.
member states, including the United States. It is the primary
deliberative, policymaking, and representative organ of the
Role and Responsibilities
United Nations. Each country, including the United States,
The role and duties of congressional representatives are not
has one vote. A two-thirds majority vote is required for
formalized; thus, the level and extent of congressional
decisions related to key issues such as peace and security,
engagement during the Assembly session depends on the
admission of new members, and the budget. A simple
interests and priorities of individual Members. Delegates
majority vote applies for all other matters.
generally travel to New York at the beginning of the regular
session. In the past, some Members have attended the
The Assembly’s annual regular session opens in September
general debate and the President’s reception for visiting
and runs for one year. The main part of the session, from
heads of state, while others have stayed for several
September to December, includes most of the work of the
additional days or returned for other parts of the Assembly
Assembly’s six committees. The annual meeting of heads
session. Congressional representatives have also followed
of state and government, often referred to as the “general
the activities of one of the General Assembly’s six main
debate,” is held at the beginning of the Assembly session.
committees, with at least one Member tracking the work of
Members of Congress generally serve as representatives
the fifth committee, which is responsible for administrative
during this time.
and budgetary matters related to the organization. Before or
during the session, Members may also schedule
History of Congressional Representation
appointments on policy issues of interest; these might
The concept of congressional representation to the U.N.
include one-on-one visits with heads of state, foreign
General Assembly emerged from extensive participation by
representatives, or U.N. officials.
both Senators and Representatives in the 1945 San
Francisco Conference on International Organization, which
Congressional representatives have often received support
led to the adoption of the U.N. Charter. The practice began
from congressional committee staff and State Department
at the first Assembly session in 1946, when Members of the
officials. For example, staff from the House Foreign Affairs
Senate and House held positions as representatives and
Committee (HFAC) and Senate Foreign Relations
alternate representatives, respectively. Since that time, with
Committee (SFRC) might write statements, provide
few exceptions, each year two Senators have alternated
background materials and briefings, or arrange meetings for
with two Representatives—with the Senate typically
Members. State Department officials generally coordinate
serving in years when the House holds elections. In most
meetings and brief Members on U.S. policy and key issues
cases, both parties have been represented and, when
facing the Assembly. The Department also provides
possible, the Administration and Congress have aimed to
Members with office space and services in the U.S. Mission
select Members who have not previously served as
to the United Nations in New York City.
delegates. (See Table 1 for a list of congressional
representatives since 2000.)
Appointment Process
As outlined in UNPA, the President, with the advice and
Legislative Authority
consent of the Senate, may designate congressional
After the adoption of the U.N. Charter, Congress enacted
representatives. In practice, SFRC has developed a policy
the United Nations Participation Act of 1945 (UNPA; 22
of not holding hearings for temporary or part-time
U.S.C. 287 et seq.), which provides legislative authority for
positions, including General Assembly representatives.
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United Nations Issues: Congressional Representatives to the U.N. General Assembly
Instead, both the House and Senate, specifically HFAC and
Table 1. Congressional Representatives to U.N.
SFRC, have annually provided the President with their
General Assembly Sessions: 2000 to 2017
choices for congressional representatives to the Assembly.
The selected representatives are usually confirmed by the
General Assembly Main
Representatives or
Senate by voice vote. From 2013 to 2016, however, it
Sessions
Senators
appeared that while SFRC reported out nominees, the full
72nd
Rep. Barbara Lee
Senate did not vote on the nominations. In those years,
(Sept. 12-Dec. 24, 2017)
Rep. Christopher Smith
nominees still served as representatives to the Assembly.
Nominees for the 72nd Assembly session in 2017 were
71st
Sen. Chris Coons
confirmed by the Senate by a voice vote.
(Sept. 13-Dec. 23, 2016)
Sen. Ron Johnson
Committee Selection
70th
Rep. Barbara Lee
(Sept. 16-Dec. 29, 2015)
Rep. Christopher Smith
Although both HFAC and SFRC have at different times
documented procedures for selecting congressional
69th
Sen. Ben Cardin
representatives, in practice the process appears to be
(Sept. 16-Dec. 29, 2014)
Sen. Ron Johnson
informal and has varied over time depending on the
priorities and preferences of committee leadership.
68th
Rep. Barbara Lee
(Sept. 17-Dec. 27, 2013)
Rep. Mark Meadows
House of Representatives. HFAC does not appear to have
67th
Sen. John Isakson
a formal process for selecting congressional representatives
(Sept. 18-Dec. 24, 2012)
Sen. Patrick Leahy
to the General Assembly. Based on past practice, it has
assigned one Member from each political party on the basis
66th
Rep. Ann Marie Buerkle
of seniority, starting with those who have not served as
(Sept. 13-Dec. 24, 2011)
Rep. Russ Carnahan
representatives; however, in recent years HFAC members
65th
Sen. Jeanne Shaheen
have increasingly selected participants based on the
Member’s level of inte
(Sept. 14-Dec. 24, 2010)
Sen. Roger Wicker
rest in U.N.-related issues and
availability to attend the session.
64th
Rep. William Delahunt
(Sept. 15-Dec. 23, 2009)
Rep. Christopher Smith
Senate. SFRC also does not appear to have a formal
process for selecting congressional representatives to the
63rd
Sen. Bob Corker
Assembly. In practice, the chairperson and ranking member
(Sept. 16-Dec. 23, 2008)
Sen. Bill Nelson
select the representatives, who are usually chosen from
62nd
Rep. William Delahunt
among SFRC members. Similar to the House, congressional
(Sept. 18-Dec. 21, 2007)
Rep. Ted Poe
representatives from the Senate appear to be selected based
on their interest in U.N. issues and availability.
61st
Sen. Barbara Boxer
(Sept. 12-Dec. 22, 2006)
Sen. Norm Coleman
Role of the Executive Branch
In accordance with the President’s authority to appoint U.S.
60th
Rep. Donald Payne
(Sept. 13-Dec. 23, 2005)
Rep. Edward Royce
representatives to the U.N. General Assembly, the
executive branch is responsible for sending a letter of
59th
Sen. Patrick Leahy
invitation to the individual Member appointing him or her
(Sept. 11-Dec. 23, 2004)
Sen. John Sununu
to the U.S. delegation. At the same time, it forwards the
names of the selected Members to the Senate for
58th
Rep. Amory Houghton
confirmation, and encloses a full list of participants on the
(Sept. 14-Dec. 23, 2003)
Rep. Donald Payne
U.S. delegation. The first public notice is a press statement
57th
Sen. Mike Enzi
from individual members, a White House announcement, or
(Sept. 16-Dec. 23, 2002)
Sen. Paul Sarbanes
a notice of intention to nominate as part of the General
Assembly delegation, subject to Senate confirmation.
56th
Rep. Steve Chabot
(Sept. 10-Dec. 23, 2001)
Rep. Eni Faleomavaega
The State Department provides funding for U.S.
55th
Sen. Joseph Biden
representatives to the General Assembly, including per
(Sept. 5-Dec. 23, 2000)
Sen. Bill Frist
diem, transportation, and lodging expenses. These activities
are typically financed through the Diplomatic & Consular
Sources: CRS, White House and congressional press releases.
Programs account, which funds the Office of International
Notes: The dates represent the end of the main part of the General
Conferences in the International Organization Affairs
Assembly session. They do not represent the end of the entire
Bureau (IO/C). IO/C is responsible for accrediting,
Assembly session, which typically concludes in September of the
instructing, and managing U.S. delegates to multilateral
following year, the day before the next session begins.
conferences, including the General Assembly.
Luisa Blanchfield, Specialist in International Relations
Matthew C. Weed, Specialist in Foreign Policy Legislation
IF10464
https://crsreports.congress.gov
United Nations Issues: Congressional Representatives to the U.N. General Assembly
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