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Updated September 11, 2019
United Nations Issues: U.S. Funding to the U.N. System
The United States is the single largest financial contributor
the scale of assessment for the U.N. regular budget, while
to the United Nations (U.N.) system. Congress has long
others use their own formulas to determine assessments.
debated the appropriate level of U.S. contributions to U.N.
U.N. peacekeeping funding
system activities and whether U.S. funds are used
There are currently 14 U.N. peacekeeping missions
efficiently and effectively. Since 2017, the Trump
worldwide with over 100,000 military, police, and civilian
Administration has proposed significant overall decreases
personnel. U.N. Security Council resolutions establishing
in U.S. funding; however, Congress has generally funded
new operations specify how each mission will be funded. In
U.N. entities at higher levels than the Administration has
most cases, the Council authorizes the General Assembly to
requested. Compared to FY2019 funding levels, the
President’s
create a separate special account for each operation funded
FY2020 budget proposed reducing U.N.
by assessed contributions. The approved budget for the
peacekeeping funding by 27%, decreasing U.N. regular
2019/2020 peacekeeping fiscal year is $6.51 billion. The
budget and specialized agency funding by 25%, and
Assembly adopts the peacekeeping scale of assessments
eliminating funding to some U.N. funds and programs.
every three years based on modifications of the regular
U.N. System Funding
budget scale, with the five permanent Council members
assessed at a higher level than for the regular budget. The
The U.N. system is made up of interconnected entities
current U.S. peacekeeping assessment is 27.89%.
including specialized agencies, funds and programs,
peacekeeping operations, and the U.N. organization itself.
U.N. financial situation
The U.N. Charter, ratified by the United States in 1945,
In a March 2019 report to the General Assembly, U.N.
requires each member state to contribute to the expenses of
Secretary-General Guterres expressed concern regarding
the organization. The system is financed by assessed and
the “deteriorating financial health” of the United Nations,
voluntary contributions from U.N. members. Assessed
which has led to some budget shortfalls. He stated that
contributions are required dues, the payment of which is a
these challenges were not only the product of U.N. member
legal obligation accepted by a country when it becomes a
state “payment patterns and arrears,” but also “structural
member. Such funding provides U.N. entities with a regular
weaknesses in [U.N.] budget methodology.” To help
source of income to pay for staff and implement core
address these issues, he proposed several reforms that have
programs. The U.N. regular budget, specialized agencies,
been implemented or are under consideration by U.N.
and peacekeeping operations and are financed mainly by
member states, including supporting replenishment of the
assessed contributions. Voluntary contributions fund special
Special Account (which was established in 1965 to help the
funds, programs, and offices. The budgets for these entities
organization with any financial challenges); pooling U.N.
may fluctuate annually depending on contribution levels.
peacekeeping cash balances; and changing peacekeeping
U.N. regular budget and U.N. specialized agencies
billing processes.
The U.N. regular budget funds the core administrative costs
of the organization, including the General Assembly,
U.S. Funding
Security Council, Secretariat, International Court of Justice,
Congress has generally authorized funding to the U.N.
special political missions, and human rights entities. The
system as part of Foreign Relations Authorization Acts;
regular budget is adopted by the Assembly to cover a two-
appropriations are provided to the Department of State and
year period; however, in 2017 the Assembly voted to
U.S. Agency for International Development to meet
change the budget cycle to a one-year period beginning in
obligations. When authorization bills are not enacted,
2020. Since the late 1980s, most Assembly decisions
Congress has waived the authorization requirements and
related to the budget have been adopted by consensus.
appropriated funds through accounts in annual Department
When budget votes occur (which is rare) decisions are
of State, Foreign Operations, and Related Programs
made by a two-thirds majority of members present and
(SFOPS) appropriations bills.
voting, with each country having one vote. The approved
The Administration’s FY2020 budget proposed significant
regular budget for 2018-2019 is $5.8 billion, or $2.9 billion
decreases in funding to accounts supporting the United
a year. The General Assembly negotiates a scale of
Nations (see Table 1). The Contributions to International
assessments for the regular budget every three years based
on a country’s capacity to
Organizations (CIO) account, which funds assessed
pay; assessments for the 2019-
contributions to the U.N. regular budget, specialized
2021 time period were adopted in December 2018. The
agencies (such as the World Health Organization [WHO]
U.S. assessment is currently 22%, the highest of any U.N.
and Food and Agriculture Organization [FAO]), and other
member state. The U.S. rate is set by a ceiling that was
international organizations, would be reduced by 25%, from
agreed to in the General Assembly in 2000.
$1.36 billion in FY2019 to $1.01 billion in FY2020. Of the
U.N. specialized agencies are autonomous in executive,
FY2020 request, $785.38 million is designated for U.N.
legislative, and budgetary powers. Some agencies follow
entities. (FY2019 funding for U.N. entities is still being
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link to page 2 United Nations Issues: U.S. Funding to the U.N. System
finalized.) The request prioritizes funding for organizations
Selected Policy Issues
whose missions “substantially advance U.S. foreign policy
interests” and reduces funding
U.N. regular budget assessment
for those whose “results are
unclear”
Over the years, policymakers have expressed concern that
and “work does not directly affect our [U.S.]
national security interests.”
current regular budget assessments levels result in the
United States providing the bulk of funding while having
The Contributions for International Peacekeeping Activities
minimal influence on the budget process. Some have called
(CIPA) account, which funds U.S.-assessed contributions to
for increased transparency in the process for determining
most U.N. peacekeeping operations, would be reduced by
the scale of assessments. Conversely, some contend that the
27%—from $1.55 billion in FY2019 to $1.13 billion in
current assessment level is roughly equivalent to the U.S.
FY2020. The request states the Administration’s
share of world gross national income. They argue that it
“commitment to seek reduced costs by reevaluating the
reflects U.S. commitment to the United Nations, affirms
mandates, design, and implementation” of missions, and
U.S. leadership, leverages funding from other countries,
sharing the burden “more fairly” among U.N. members.
and helps the United States achieve its goals in U.N. fora.
The International Organizations and Programs (IO&P)
U.S. peacekeeping assessment cap
account, which received $364 million in FY2019 (including
In 1995, due to concerns that the U.S. peacekeeping
$319.7 million for U.N. entities), funds U.S. voluntary
assessment level was too high (over 30%), Congress set a
contributions to many U.N. funds and programs, including
limit of 25% on the funds authorized after FY1995.
UNICEF and UN Women. For FY2020, the Administration
Between FY2001 and FY2016, Congress enacted
proposed eliminating the account; a similar proposal was
legislation to raise the cap temporarily so that U.S.
included in the FY2018/FY2019 budget requests.
contributions were closer to U.N. assessment levels.
Table 1. Selected U.S. Contributions, by Account
Congress did not enact a cap adjustment for FY2017
through FY2019, and it returned to 25%. As a result, the
(Thousands of $ U.S. Dollars)
United States accumulated about $725 million in cap-
related arrears from FY2017 to FY2019.
FY18 Act.
FY19 En.
FY20 Req.
Executive branch role
CIO
1,467,408
1,360,270
1,013,693
The executive branch has some leeway to determine the use
of which U.N.
1,089,985
N/A
785,386
of funds for certain accounts without congressional
CIPA
1,382,080
1,551,000
1,136,000
consultation. Some policymakers are concerned that the
Administration may not allocate funding to U.N. entities as
PKO/UNSOSa 101,070
N/A
N/A
Congress intended. Appearing to reference this issue, the
IO&P
339,000
364,000
0
explanatory statement to the FY2019 SFOPS bill included
language that “assumes the payment of the full [U.S.]
of which U.N.
296,275
319,750
0
assessment at each respective organization” for CIO. It also
Sources: Annual, congressional budget justifications and SFOPS
stated that IO&P funds “shall be made available for core
appropriations legislation and explanatory statements.
contributions for each entity.” This represents the first time
Note: N/A = not available.
such language was included in SFOPS explanatory
a. Administrations general y request U.N. Support Office in
statements. Some of these concerns stemmed from the
Somalia (UNSOS) funds through CIPA; however, Congress
Administration’s 2018 decisions to no longer fund the U.N.
funds UNSOS through the Peacekeeping Operations account
Relief Works Agency for Palestine Refugees in the Near
(PKO), which funds non-U.N. peacekeeping missions.
East (funded through the global humanitarian accounts) and
In addition, the United States provides voluntary
to withhold contributions to the U.N. Office of the High
contributions to U.N. entities through other SFOPS
Commissioner for Human Rights (funded through CIO). To
accounts. For example, it contributed $5.6 billion to U.N.
further address this issue, some have suggested that
humanitarian-related activities through the global
Congress legislate funding levels for specific U.N. entities.
humanitarian accounts in FY2017, including Migration and
U.S. funding and U.N. reform
Refugee Assistance, International Disaster Assistance, and
Over the years, Congress has enacted legislation linking
Food for Peace, Title II (P.L. 480). (Comprehensive
U.S. funding to specific U.N. reform benchmarks or
FY2018 funding allocations are not yet available.) Congress
activities. For example, since the 1980s the United States
generally appropriates overall funding to each of these
has withheld funding for activities related to the
accounts, while the executive branch determines how funds
Palestinians. In addition, SFOPS bills since FY2014 have
are allocated based on policy priorities and humanitarian
linked U.S. funding to U.N. whistleblower protection and
needs. Entities that received the bulk of this funding in
audit transparency policies. Some Members have opposed
FY2017 included the U.N. High Commissioner for
such actions due to concerns that they may interfere with
Refugees ($1.4 billion) and the World Food Program ($2.6
U.S. influence and ability to conduct diplomacy in U.N.
billion). Voluntary U.N. funding is also provided through
fora. Others maintain that the United States should use its
accounts addressing health, security, and development,
position as the largest financial contributor to push for
such as Economic Support Fund and Global Health
reform, in some cases by withholding funding.
Programs. U.N. funding from these accounts in FY2017
totaled about $1 billion and included entities such as WHO,
Luisa Blanchfield, Specialist in International Relations
UNICEF, and the International Atomic Energy Agency.
IF10354
https://crsreports.congress.gov
United Nations Issues: U.S. Funding to the U.N. System
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