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March 4, 2021
United Nations Issues: Overview of the United Nations System
The United Nations (U.N.) system comprises
The three other principal organs are (1) the U.N. Economic
interconnected entities including the United Nations,
and Social Council, a 54-member body that addresses
specialized agencies, U.N. peacekeeping operations, funds
economic, social, and environmental issues; (2) the
and programs, and other related bodies. Congress has
International Court of Justice, the principal U.N. judicial
generally supported the U.N. system and mission, and often
body; and (3) the Trusteeship Council, which supervised
uses U.N. mechanisms to further U.S. foreign policy
the administration of trust territories from colonies to
objectives. At the same time, some policymakers have been
sovereign nations and completed its mandate in 1994.
critical of the U.N. system, arguing that U.N. actions or
decisions do not align with U.S. policy priorities, or that it
The United Nations is funded through the U.N. regular
is not operating as effectively as possible.
budget, which totaled $3.2 billion in 2020. The United
States’ assessed contribution is 22% of the regular budget
Each U.N. entity has different mandates, structures,
($638.6 million in FY2020). Other top contributors include
leadership, and funding mechanisms. U.N. entities are
China (12%) and Japan (8.5%). U.N. members approve
funded through assessed and voluntary contributions from
assessment levels every three years based on a formula
U.N. members. Assessed contributions are required dues,
taking into account gross national income and other
the payment of which is a legal obligation accepted by a
economic data. The United States often accumulates arrears
country when it becomes a member. Voluntary
to the regular budget due to differences between the U.S.
contributions finance special funds, programs, and offices.
and U.N. fiscal years (which affects the timing of U.S.
Some U.N. bodies receive both types of funding.
payments) and U.S. withholdings from U.N. activities,
among other reasons. (For more information, see CRS In
The United Nations
Focus IF10354, United Nations Issues: U.S. Funding to the
Established in the aftermath of World War II, the United
U.N. System.)
Nations is an intergovernmental organization composed of
193 member states. The U.N. Charter, an international
U.N. Specialized Agencies
treaty to which the United States is a state party, is the
The U.N. system has 15 specialized agencies, each of which
founding document of the United Nations. Article 1 of the
is a legally independent intergovernmental organization
charter states that the purposes of the organization are to
with its own constitution, rules, membership, organs, and
maintain international peace and security; develop friendly
assessed budget (Figure 1). Many specialized agencies
relations among nations; solve economic, social, cultural, or
follow the assessments for the U.N. regular budget, while
humanitarian problems; and promote human rights. The
others use their own formulas. The United States is a
United Nations includes six main parts (referred to as
member of all specialized agencies except for UNESCO,
“organs”).
UNIDO, and UNWTO. (President Trump initiated WHO
withdrawal in 2020; President Biden halted the process and
The 193-member General Assembly (GA) is the
resumed U.S. participation in 2021.)
organization’s primary decisionmaking body. It
approves the U.N. regular and peacekeeping budgets
Figure 1. U.N. Specialized Agencies
and supports the work of its committees and subsidiary
organs, such as the U.N. Human Rights Council (HRC).
The 15-member Security Council (SC) is mandated
with maintaining international peace and security. It
includes 5 permanent members with veto power (United
States, China, France, Russia, and the United Kingdom)
and 10 nonpermanent members, who are elected by the
GA for two-year terms.
The Secretariat is the U.N. administrative body. It is
led by the Secretary-General (SG), who serves as chief
administrative officer. The SG is appointed by the GA
on the recommendation of the SC. The SG serves a five-
year term, with the possibility for a second term. The
Secretariat is located at U.N. Headquarters in New York
City.
Source: United Nations, adapted by CRS.
https://crsreports.congress.gov
United Nations Issues: Overview of the United Nations System
U.N. Peacekeeping
Both Congress and the executive branch have key roles in
The United Nations currently operates 13 U.N.
furthering U.S. policy toward the U.N. system. Congress
peacekeeping missions worldwide, with more than 80,000
authorizes and appropriates U.S. funding, while the
personnel from over 100 countries. The SC is responsible
executive branch represents and shapes U.S. policy through
for establishing and renewing each operation, as well as
the State Department and the U.S. Mission to the United
determining the mission’s mandate and budget. The United
Nations (USUN) in New York City. The President
States, as a permanent SC member, plays a key role in
nominates ambassadors for U.N. posts, and the Senate
shaping peacekeeping missions. The approved
provides advice and consent for nominees. This includes
peacekeeping budget is currently $6.58 billion. The United
the U.S. Permanent Representative to the United Nations,
States is the largest financial contributor, assessed 27.9% of
who leads USUN and represents the United States in the
the total peacekeeping budget in 2020, followed by China
Security Council and other U.N. bodies. Over the years,
(15.2%) and Japan (8.5%). In 1994, Congress enacted a
Congress and the executive branch have raised, lowered, or
25% cap on U.S. funding to U.N. peacekeeping. Over the
conditioned U.S. funding to U.N. entities. Many have also
years, the gap between the U.S. cap and U.N. assessment
sought to reform the U.N. system, with a focus on
has led to the accumulation of arrears. In FY2021, Congress
improving management and accountability mechanisms.
appropriated $1.46 billion to most peacekeeping activities,
Congress further oversees U.S. policy through hearings,
up to the 25% cap. (For more information, see CRS In
reporting requirements, and executive branch consultations.
Focus IF10597, United Nations Issues: U.S. Funding of
U.N. Peacekeeping.)
During the past decade, U.S. approaches toward the United
Nations have varied. President Obama strongly supported
U.N. Funds and Programs
U.S. participation in the organization. Conversely, President
U.N. funds and programs are generally established by the
Trump declined to fund several U.N. entities or withdrew
GA and have a specific mandate. The SG appoints the head
U.S. membership. President Biden has stated that the
of each entity, while the governing boards (composed of
United States will reengage with the U.N. system.
U.N. member states) review policies and activities. Funds
and programs rely on voluntary contributions from
Congressional Considerations
governments, the private sector, and civil society. Such
Congressional debates on U.S. participation in the U.N.
contributions might fund the core budgets of these bodies or
system often occur against the backdrop of competing
be earmarked for specific activities. Examples of U.N.
foreign and domestic priorities and broader questions about
funds and programs include the U.N. Development
the role of the United Nations in U.S. foreign policy. The
Program, U.N. Environment Program, U.N. Population
117th Congress may consider several overarching issues.
Fund, and World Food Program.
U.N. role and effectiveness. Many policymakers have
Other Entities and Related Organizations
debated the effectiveness of U.N. entities in achieving their
Several other U.N. entities do not fall under the previous
mandates. For example, some express concern that the SC
categories, including the U.N. Office of the High
has taken insufficient action on certain peace and security
Commissioner for Refugees (UNHCR), UN Women, and
issues (such as the humanitarian situation in Syria), or that
U.N. Relief and Works Agency for Palestine Refugees in
HRC does not effectively address human rights violations
the Near East (UNRWA). Like U.N. funds and programs,
(while disproportionately focusing on Israel). At the same
these bodies often focus on specific issues and rely on
time, many acknowledge the benefits of the U.N. system,
voluntary funding. Depending on the organization, their
particularly its convening power, burden-sharing principles,
heads are appointed by the SG or elected by the GA.
and role in setting global norms and standards.
Other separate U.N.-related organizations such the
U.S. funding and reform. Members may consider the
International Criminal Court, International Atomic Energy
benefits and drawbacks of U.S. funding to the U.N. system,
Agency, and International Organization for Migration are
including areas where the United States can use funding to
part of the U.N. system but not considered U.N. bodies.
increase efficiency and accountability through reform, or to
They may have special agreements with or report to U.N.
achieve the largest return on its investment. Some
bodies like the GA or SC.
policymakers may also consider the impact, if any, of U.S.
arrears or withholdings on U.S. influence in U.N. fora and
U.S. Participation in the U.N. System
U.N. operations.
The United States played a lead role in the establishment of
the United Nations in 1945 and is the largest financial
Influence of other countries. Policymakers may assess the
contributor to many U.N. entities. It is a member of the GA
implications, if any, of reduced U.S. participation in and
and is a permanent member of the SC. It is also a member
funding of the U.N. system since 2017, including the
of 12 U.N. specialized agencies and is often elected to
possible impact of other countries providing funding and
leadership positions on U.N. boards, councils, and other
leadership traditionally held by the United States. For
bodies. U.S. participation in and funding of the United
example, many policymakers express concern that China
Nations is authorized through the United Nations
was elected to lead four U.N. specialized agencies since
Participation Act of 1945 (P.L. 79-264, as amended).
2017: FAO, ICAO, ITU, and UNIDO.
Authorization for U.S. participation in other U.N. bodies is
included in the Foreign Assistance Act of 1961 (§301 of
Luisa Blanchfield, Specialist in International Relations
P.L. 87-195, as amended) and other legislation.
IF11780
https://crsreports.congress.gov
United Nations Issues: Overview of the United Nations System
Disclaimer
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congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
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https://crsreports.congress.gov | IF11780 · VERSION 1 · NEW