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Updated March 10, 2020
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. There are currently 13 U.N.
system activities and whether U.S. funds are used
peacekeeping missions worldwide with over 80,000
efficiently and effectively. Since 2017, the Trump
military, police, and civilian personnel. U.N. Security
Administration has proposed significant overall decreases
Council resolutions establishing new operations specify
in U.S. funding; however, Congress has generally funded
how each mission will be funded. In most cases, the
U.N. entities at higher levels than the Administration has
Council authorizes the General Assembly to create a
requested. Compared to FY2020-enacted funding levels, the
President’s
separate special account for each operation funded by
FY2021 budget proposed reducing U.N.
assessed contributions. The approved budget for the
peacekeeping funding by 29%, decreasing U.N. regular
2019/2020 peacekeeping fiscal year is $6.51 billion. The
budget and specialized agency funding by 34%, 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. In a March 2019 report to the
The U.N. Charter, ratified by the United States in 1945,
General Assembly, U.N. Secretary-General Guterres
requires each member state to contribute to the expenses of
expressed concern regarding the “deteriorating financial
the organization. The system is financed by assessed and
health” of the United Nations, which has led to some
voluntary contributions from U.N. members. Assessed
budget shortfalls. He stated that these challenges were not
contributions are required dues, the payment of which is a
only the product of U.N. member state “payment patterns
legal obligation accepted by a country when it becomes a
and arrears,” but also “structural weaknesses in [U.N.]
member. Such funding provides U.N. entities with a regular
budget methodology.” To help address these issues, he
source of income to pay for staff and implement core
proposed several reforms that have been implemented or
programs. The U.N. regular budget, specialized agencies,
are under consideration by U.N. member states, including
and peacekeeping operations and are financed mainly by
supporting replenishment of the Special Account (which
assessed contributions. Voluntary contributions fund special
was established in 1965 to help the organization with any
funds, programs, and offices. The budgets for these entities
financial challenges); pooling U.N. peacekeeping cash
may fluctuate annually depending on contribution levels.
balances; and changing peacekeeping billing processes.
U.N. regular budget and U.N. specialized agencies. The
U.N. regular budget funds the core administrative costs of
U.S. Funding
the organization, including the General Assembly, Security
Congress has generally authorized funding to the U.N.
Council, Secretariat, International Court of Justice, special
system as part of Foreign Relations Authorization Acts;
political missions, and human rights entities. The regular
appropriations are provided to the Department of State and
budget is adopted by the Assembly to cover a two-year
U.S. Agency for International Development (USAID) to
period; however, in 2017 the Assembly voted to change the
meet obligations. When authorization bills are not enacted,
budget cycle to a one-year period beginning in 2020. Since
Congress has waived the authorization requirements and
the late 1980s, most Assembly decisions related to the
appropriated funds through accounts in annual Department
budget have been adopted by consensus. When budget
of State, Foreign Operations, and Related Programs
votes occur (which is rare) decisions are made by a two-
(SFOPS) appropriations bills.
thirds majority of members present and voting, with each
The Administration’s FY2021 budget proposed significant
country having one vote. The approved regular budget for
decreases in funding to accounts supporting the United
2018-2019 is $5.8 billion, or $2.9 billion a year. The
Nations (see Table 1). The Contributions to International
General Assembly negotiates a scale of assessments for the
regular budget every three years based on a country’s
Organizations (CIO) account, which funds assessed
contributions to the U.N. regular budget, specialized
capacity to pay; assessments for the 2019-2021 time period
agencies (such as the World Health Organization and Food
were adopted in December 2018. The U.S. assessment is
and Agriculture Organization), and other international
currently 22%, the highest of any U.N. member state. The
organizations, would be reduced by 34.4%, from $1.47
U.S. rate is set by a ceiling that was agreed to in the
billion in FY2020 to $966.2 million in FY2021. Of the
General Assembly in 2000.
FY2021 request, $780.8 million is designated for U.N.
entities, compared to the FY2020 estimate of $1.15 billion.
U.N. specialized agencies are autonomous in executive,
The request prioritizes funding for organizations whose
legislative, and budgetary powers. Some agencies follow
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United Nations Issues: U.S. Funding to the U.N. System
missions “substantially advance U.S. foreign policy
budget assessments levels result in the United States
interests” and reduces funding for those whose “results are
providing the bulk of funding while having minimal
unclear” and “work does not directly affect our [U.S.]
influence on the budget process. Some have called for
national security interests.” The budget also requests
increased transparency in the process for determining the
$598,000 for the United States to rejoin the World Tourism
scale of assessments. Conversely, some contend that the
Organization.
current assessment level is roughly equivalent to the U.S.
share of world gross national income. They argue that it
The Contributions for International Peacekeeping Activities
reflects U.S. commitment to the United Nations, affirms
(CIPA) account, which funds U.S.-assessed contributions to
U.S. leadership, leverages funding from other countries,
most U.N. peacekeeping operations, would be reduced by
and helps the United States achieve its goals in U.N. fora.
29.2%—from $1.52 billion in FY2020 to $1.07 billion in
FY2021. The request states the Administration’s
“commitment to seek reduced costs by
U.S. peacekeeping assessment cap. In 1995, due to
reevaluating the
mandates, design, and implementation” of missions
concerns that the U.S. peacekeeping assessment level was
.
too high (over 30%), Congress set a limit of 25% on the
The International Organizations and Programs (IO&P)
funds authorized after FY1995. Between FY2001 and
account, which received $390.5 million in FY2020
FY2016, Congress enacted legislation to raise the cap
(including $310.27 million for U.N. entities), funds U.S.
temporarily so that U.S. contributions were closer to U.N.
voluntary contributions to many U.N. funds and programs,
assessment levels. It did not enact a cap adjustment for
including UNICEF and UN Women. For FY2021, the
FY2017 through FY2019, and it returned to 25%. As a
Administration proposed eliminating the account; a similar
result, the United States has accumulated more than $900
proposal was included in the FY2018-FY2020 budget
million in cap-related arrears from FY2017 to FY2020.
requests.
Executive branch role. The executive branch has some
Table 1. Selected U.S. Contributions, by Account
leeway to determine the use of funds for certain accounts
(Thousands of $ U.S. Dollars)
without congressional consultation. Some policymakers are
concerned that the Administration may not allocate funding
FY19 Act.
FY20 Enact.
FY21 Req.
to U.N. entities as Congress intended. Appearing to
CIO
1,360,270
1,473,806
966,224
reference this issue, the explanatory statement to the
of which U.N. 1,063,827
N/A
780,832
FY2019 SFOPS bill included language that “assumes the
CIPA
1,550,900
1,526,383
1,079,200
payment of the full [U.S.] assessment at each respective
IO&P
364,000
390,500
0
organization” for CIO. It also stated that IO&P funds “shall
of which U.N. 319,750
310,275
0
be made available for core contributions for each entity.”
Sources: Annual congressional budget justifications and SFOPS
This represented the first time such language was included
appropriations legislation and explanatory statements.
in SFOPS explanatory statements. (Similar language was
Notes: N/A = not yet available. Enacted CIPA funding does not
not included in the FY2020 SFOPS explanatory statement.)
include funding for the U.N. Support Office in Somalia (UNSOS).
Some of these concerns appear to stem from the
Administrations usual y request UNSOS funds through CIPA, but
Administration’s 2018 decisions to no longer fund the U.N.
Congress funds UNSOS through the Peacekeeping Operations
Relief Works Agency for Palestine Refugees in the Near
account, which funds non-U.N. peacekeeping activities.
East (funded through the global humanitarian accounts) and
to withhold contributions to the U.N. Office of the High
The United States provides voluntary contributions to U.N.
Commissioner for Human Rights (funded through CIO). To
entities through other SFOPS accounts. For example,
further address this issue, some have suggested that
according to USAID’s Foreign Aid Explorer database, it
Congress legislate funding levels for specific U.N. entities.
contributed $5.27 billion to U.N. humanitarian-related
activities through the global humanitarian accounts in
U.S. funding and U.N. reform. Congress has enacted
FY2018, including Migration and Refugee Assistance,
legislation linking U.S. funding to specific U.N. reform
International Disaster Assistance, and Food for Peace, Title
benchmarks or activities. For example, since the 1980s the
II (P.L. 480). (Complete FY2019 and FY2020 funding
United States has withheld funding for activities related to
allocations are not yet fully available.) Congress generally
the Palestinians. In addition, SFOPS bills since FY2014
appropriates overall funding to each of these accounts,
have linked U.S. funding to U.N. whistleblower protection
while the executive branch determines how funds are
and audit transparency policies. Some Members have
allocated based on foreign policy priorities and
opposed such actions due to concerns that they may
humanitarian needs. Voluntary U.N. funding is also
interfere with U.S. influence and ability to conduct
provided through accounts addressing health, security, and
diplomacy in U.N. fora. Others maintain that the United
development, such as Economic Support Fund and Global
States should use its position as the largest financial
Health Programs. According to USAID, U.N. funding from
contributor to push for reform, in some cases by
these accounts in FY2018 totaled more than $1 billion and
withholding funding.
included entities such as the World Health Organization,
UNICEF, and International Atomic Energy Agency, among
Luisa Blanchfield, Specialist in International Relations
others.
IF10354
Selected Policy Issues
U.N. regular budget assessment. Over the years,
policymakers have expressed concern that current regular
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United Nations Issues: U.S. Funding to the U.N. System
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