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Updated January 20, 2023
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 ($3.4 billion for 2023). The United States’ assessed
contribution is 22% of the regular budget (an estimated
U.N. entities have different mandates, structures,
$692.5 million in U.S. FY2023). Other top contributors
leadership, and funding mechanisms. Each body is funded
include China (15.25%) and Japan (8.03%). U.N. members
through assessed or voluntary contributions from U.N.
approve assessment levels every three years based on a
members (or a combination of both). Assessed contributions
formula taking into account gross national income and other
are required dues, the payment of which is a legal
economic data. The United States often accumulates arrears
obligation accepted by a country when it becomes a
to the regular budget due to differences between the U.S.
member. Voluntary contributions finance special funds,
and U.N. fiscal years (which affects the timing of U.S.
programs, and offices. Some U.N. bodies receive both types
payments) and U.S. withholdings from U.N. activities,
of funding.
among other reasons. (For more information, see CRS In
Focus IF10354, United Nations Issues: U.S. Funding to the
The United Nations
U.N. System.)
Established in the aftermath of World War II, the United
Nations is an intergovernmental organization composed of
U.N. Specialized Agencies
193 member states. The U.N. Charter, an international
The U.N. system has 15 specialized agencies, each of which
treaty to which the United States is a state party, is the
is a legally independent intergovernmental organization
founding document of the United Nations. Article 1 of the
with its own constitution, rules, membership, organs, and
Charter states that the purposes of the organization are to
assessed budget (Figure 1). Many specialized agencies
maintain international peace and security; develop friendly
follow the assessments for the U.N. regular budget, while
relations among nations; solve economic, social, cultural, or
others use their own formulas. The United States is a
humanitarian problems; and promote human rights. The
member of all specialized agencies except for UNESCO,
United Nations includes six main parts (referred to as
UNIDO, and UNWTO. (President Trump initiated WHO
“organs”).
withdrawal in 2020; President Biden halted the process and
resumed U.S. participation in 2021.)
The 193-member General Assembly (GA) is the
organization’s primary decisionmaking body. It
Figure 1. U.N. Specialized Agencies
approves the U.N. regular and peacekeeping budgets
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 12 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 budget for
provides advice and consent for nominees. This includes
the 2022-2023 peacekeeping fiscal year is $6.45 billion.
the U.S. Permanent Representative, who leads USUN and
The United States is the largest financial contributor,
represents the United States in the SC and other U.N.
assessed 26.94% of the total peacekeeping budget, followed
bodies. Over the years, both Congress and the executive
by China (18.69%) and Japan (8.03%). In 1994, Congress
branch have adjusted or conditioned U.S. funding to U.N.
enacted a 25% cap on U.S. funding to U.N. peacekeeping.
entities. Many have also sought U.N. reform, with a focus
Over the years, the gap between the U.S. cap and U.N.
on improving management and accountability mechanisms.
assessment has led to the accumulation of over $1 billion in
Congress further oversees U.S. policy through hearings,
arrears. For FY2023, Congress appropriated $1.48 billion to
reporting requirements, and executive branch consultations.
most peacekeeping activities, up to the 25% cap. (For more
information, see CRS In Focus IF10597, United Nations
During the past decade, U.S. policy toward the United
Issues: U.S. Funding of U.N. Peacekeeping.)
Nations has varied. President Obama strongly supported
U.S. participation in the organization. Conversely, President
U.N. Funds and Programs
Trump declined to fund several U.N. entities or withdrew
U.N. funds and programs are generally established by the
U.S. membership. President Biden generally supports U.S.
GA and have a specific mandate. The SG appoints the head
engagement in and funding of the U.N. system.
of each entity, while the governing boards (composed of
U.N. member states) review policies and activities. Funds
Congressional Considerations
and programs rely on voluntary contributions from
Congressional debates on U.S. participation in the U.N.
governments, the private sector, and civil society. Such
system often occur against the backdrop of competing
contributions might fund the core budgets of these bodies or
foreign and domestic priorities and broader questions about
be earmarked for specific activities. Examples of U.N.
the role of the United Nations in U.S. foreign policy. The
funds and programs include the U.N. Development
118th Congress may consider several overarching issues.
Program, U.N. Environment Program, U.N. Population
Fund, and World Food Program.
U.N. role and effectiveness. Many policymakers have
debated the effectiveness of U.N. entities in achieving their
Other Entities and Related Organizations
mandates. For example, some express concern that the SC
Several other U.N. entities do not fall under the previous
has taken insufficient action on certain peace and security
categories, including the U.N. Office of the High
issues (such as Russia’s invasion of Ukraine), or that the
Commissioner for Refugees, UN Women, and U.N. Relief
HRC does not effectively address human rights violations
and Works Agency for Palestine Refugees in the Near East.
(while disproportionately focusing on Israel). At the same
Like U.N. funds and programs, these bodies often focus on
time, many acknowledge the benefits of the U.N. system,
specific issues and rely on voluntary funding. Depending on
particularly its convening power, burden-sharing principles,
the organization, their heads are appointed by the SG or
and role in setting global norms and standards.
elected by the GA.
U.S. funding and reform. Members may consider the
Other separate U.N.-related organizations such the
benefits and drawbacks of U.S. funding to the U.N. system,
International Criminal Court, International Atomic Energy
including areas where the United States can use funding to
Agency, and International Organization for Migration are
increase efficiency and accountability through reform, or to
part of the U.N. system but not considered U.N. bodies.
achieve the largest return on its investment. Some
They may have special agreements with or report to U.N.
policymakers may also consider the impact, if any, of U.S.
bodies like the GA or SC.
arrears or withholdings on U.S. influence in U.N. fora and
U.N. operations.
U.S. Participation in the U.N. System
The United States played a lead role in the establishment of
Influence of other countries. Policymakers may assess the
the United Nations in 1945 and is the largest financial
implications of inconsistent or reduced U.S. participation in
contributor to many U.N. entities. It is a member of the GA
and funding of the U.N. system during the past decade,
and is a permanent member of the SC. It is also a member
including the possible increase in influence within the U.N.
of 12 U.N. specialized agencies and is often elected to
of other countries relative to the United States. In particular,
leadership positions on U.N. boards, councils, and other
many Members have expressed concern with what they
bodies. U.S. participation in and funding of the United
perceived to be China’s ongoing efforts to increase its
Nations is authorized through the United Nations
influence in the U.N. system.
Participation Act of 1945 (P.L. 79-264, as amended).
Authorization for U.S. participation in other U.N. bodies is
Luisa Blanchfield, Specialist in International Relations
included in the Foreign Assistance Act of 1961 (§301 of
P.L. 87-195, as amended) and other legislation.
IF11780
https://crsreports.congress.gov
United Nations Issues: Overview of the United Nations System
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https://crsreports.congress.gov | IF11780 · VERSION 5 · UPDATED