United Nations Issues: Overview of the United Nations System
link to page 1 
Updated March 20, 2024
United Nations Issues: Overview of the United Nations System
The United Nations (U.N.) system comprises
economic, social, and environmental issues; (2) the
interconnected entities including the United Nations,
International Court of Justice, the principal U.N. judicial
specialized agencies, U.N. peacekeeping operations, funds
body; and (3) the Trusteeship Council, which supervised
and programs, and other related bodies. Congress has
the administration of trust territories from colonies to
generally supported the U.N. system and mission, and often
sovereign nations and completed its mandate in 1994. (For
uses U.N. mechanisms to further U.S. foreign policy
more information, see CRS Report R47715, The United
objectives. At the same time, some policymakers have been
Nations System: Frequently Asked Questions.)
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 ($3.6 billion for U.N. FY2024). The United States’
assessed contribution is 22% of the regular budget (an
U.N. entities have different mandates, structures,
estimated $707.05 million in U.S. FY2024). Other top
leadership, and funding mechanisms. Each body is funded
contributors include China (15.25%) and Japan (8.03%).
through assessed and voluntary contributions from U.N.
U.N. members approve assessment levels every three years
members (or a combination of both). Assessed contributions
based on a formula taking into account gross national
are required dues, the payment of which is a legal
income and other economic data. The United States often
obligation accepted by a country when it becomes a
accumulates arrears to the regular budget due to differences
member. Voluntary contributions finance special funds,
between the U.S. and U.N. fiscal years (which affects the
programs, and offices.
timing of U.S. payments) and U.S. withholdings from U.N.
activities, among other reasons. (For further discussion of
The United Nations
U.N. funding, see CRS In Focus IF10354, United Nations
Established in the aftermath of World War II, the United
Issues: U.S. Funding to the U.N. System.)
Nations is an intergovernmental organization composed of
193 member states. The U.N. Charter, a treaty to which the
U.N. Specialized Agencies
United States is a state party, is the founding document of
The U.N. system has 15 specialized agencies, each of which
the United Nations. Article 1 of the Charter states that the
is a legally independent intergovernmental organization
purposes of the organization are to maintain international
with its own constitution, membership, organs, and assessed
peace and security; develop friendly relations among
budget (Figure 1). Many specialized agencies follow the
nations; solve economic, social, cultural, or humanitarian
assessments for the U.N. regular budget, while others use
problems; and promote human rights. The United Nations
their own formulas. The United States is a member of all
includes six main parts (referred to as “organs”).
specialized agencies except for UNIDO and UNWTO.
• The 193-member General Assembly (GA) is the
Figure 1. U.N. Specialized Agencies
organization’s primary decisionmaking body. It
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 located
at U.N. Headquarters in New York City. 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.
Source: United Nations, adapted by CRS.
The three other principal organs are (1) the U.N. Economic
and Social Council, a 54-member body that addresses
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 11 U.N.
furthering U.S. policy toward the U.N. system. Congress
peacekeeping missions worldwide, with more than 70,000
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 2023-2024 peacekeeping fiscal year is $6.1 billion. The
the U.S. Permanent Representative, who leads USUN and
United States is the largest financial contributor, assessed
represents the United States in the SC and other U.N.
26.94% of the total peacekeeping budget, followed by
bodies. Over the years, both Congress and the executive
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 about $1.1 billion
Congress further oversees U.S. policy through hearings,
in arrears. For FY2024, the estimated U.S. contribution to
reporting requirements, and executive branch consultations.
most peacekeeping activities is $1.38 billion, up to the 25%
cap. (For more information, see CRS In Focus IF10597,
During the past decade, U.S. policy toward the United
United Nations Issues: U.S. Funding of U.N.
Nations has varied. President Obama strongly supported
Peacekeeping.)
U.S. participation in the organization. President Trump
consistently proposed decreases in U.N. funding and
U.N. Funds and Programs
withheld contributions to some U.N. bodies. President
U.N. funds and programs are generally established by the
Biden generally supports U.S. engagement in and funding
GA and have a specific mandate. The SG appoints the head
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 funds and
the role of the United Nations in U.S. foreign policy. The
programs include the U.N. Development Program, U.N.
118th Congress has considered several overarching issues.
Environment Program, 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, UN Women, and U.N. Relief
issues (such as the Russia-Ukraine conflict and the October
and Works Agency for Palestine Refugees in the Near East.
2023 Hamas attacks on Israel), or that the HRC does not
Like U.N. funds and programs, these bodies often focus on
effectively address human rights violations (while
specific issues and rely on voluntary funding. Depending on
disproportionately focusing on Israel). At the same time,
the organization, their heads are appointed by the SG or
many acknowledge the benefits of the U.N. system,
elected by the GA.
particularly its convening power, burden-sharing principles,
and role in setting global norms and standards.
Other separate U.N.-related organizations such the
International Criminal Court, International Atomic Energy
U.S. funding and reform. Members may consider the
Agency, and International Organization for Migration are
benefits and drawbacks of U.S. funding to the U.N. system,
part of the U.N. system but not considered U.N. bodies.
including areas where the United States can use funding to
They may have special agreements with or report to U.N.
increase efficiency and accountability through reform, or to
bodies like the GA or SC.
achieve the largest return on its investment. Some
policymakers may also consider the impact, if any, of U.S.
U.S. Participation in the U.N. System
arrears or withholdings on U.S. influence on U.N. activities.
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 of inconsistent or reduced U.S. participation in
and is a permanent member of the SC. It is also a member
and funding of the U.N. system during the past decade,
of 13 U.N. specialized agencies and is often elected to
including the possible increase in influence within the U.N.
leadership positions on U.N. boards, councils, and other
of other countries relative to the United States. In particular,
bodies. U.S. participation in and funding of the United
many Members have expressed concern with what they
Nations is authorized through the United Nations
perceived to be China’s ongoing efforts to increase its
Participation Act of 1945 (P.L. 79-264, as amended).
influence in the U.N. system.
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
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
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
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11780 · VERSION 8 · UPDATED
Updated March 20, 2024
United Nations Issues: Overview of the United Nations System
The United Nations (U.N.) system comprises
economic, social, and environmental issues; (2) the
interconnected entities including the United Nations,
International Court of Justice, the principal U.N. judicial
specialized agencies, U.N. peacekeeping operations, funds
body; and (3) the Trusteeship Council, which supervised
and programs, and other related bodies. Congress has
the administration of trust territories from colonies to
generally supported the U.N. system and mission, and often
sovereign nations and completed its mandate in 1994. (For
uses U.N. mechanisms to further U.S. foreign policy
more information, see CRS Report R47715, The United
objectives. At the same time, some policymakers have been
Nations System: Frequently Asked Questions.)
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 ($3.6 billion for U.N. FY2024). The United States’
assessed contribution is 22% of the regular budget (an
U.N. entities have different mandates, structures,
estimated $707.05 million in U.S. FY2024). Other top
leadership, and funding mechanisms. Each body is funded
contributors include China (15.25%) and Japan (8.03%).
through assessed and voluntary contributions from U.N.
U.N. members approve assessment levels every three years
members (or a combination of both). Assessed contributions
based on a formula taking into account gross national
are required dues, the payment of which is a legal
income and other economic data. The United States often
obligation accepted by a country when it becomes a
accumulates arrears to the regular budget due to differences
member. Voluntary contributions finance special funds,
between the U.S. and U.N. fiscal years (which affects the
programs, and offices.
timing of U.S. payments) and U.S. withholdings from U.N.
activities, among other reasons. (For further discussion of
The United Nations
U.N. funding, see CRS In Focus IF10354, United Nations
Established in the aftermath of World War II, the United
Issues: U.S. Funding to the U.N. System.)
Nations is an intergovernmental organization composed of
193 member states. The U.N. Charter, a treaty to which the
U.N. Specialized Agencies
United States is a state party, is the founding document of
The U.N. system has 15 specialized agencies, each of which
the United Nations. Article 1 of the Charter states that the
is a legally independent intergovernmental organization
purposes of the organization are to maintain international
with its own constitution, membership, organs, and assessed
peace and security; develop friendly relations among
budget (Figure 1). Many specialized agencies follow the
nations; solve economic, social, cultural, or humanitarian
assessments for the U.N. regular budget, while others use
problems; and promote human rights. The United Nations
their own formulas. The United States is a member of all
includes six main parts (referred to as “organs”).
specialized agencies except for UNIDO and UNWTO.
• The 193-member General Assembly (GA) is the
Figure 1. U.N. Specialized Agencies
organization’s primary decisionmaking body. It
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 located
at U.N. Headquarters in New York City. 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.
Source: United Nations, adapted by CRS.
The three other principal organs are (1) the U.N. Economic
and Social Council, a 54-member body that addresses
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 11 U.N.
furthering U.S. policy toward the U.N. system. Congress
peacekeeping missions worldwide, with more than 70,000
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 2023-2024 peacekeeping fiscal year is $6.1 billion. The
the U.S. Permanent Representative, who leads USUN and
United States is the largest financial contributor, assessed
represents the United States in the SC and other U.N.
26.94% of the total peacekeeping budget, followed by
bodies. Over the years, both Congress and the executive
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 about $1.1 billion
Congress further oversees U.S. policy through hearings,
in arrears. For FY2024, the estimated U.S. contribution to
reporting requirements, and executive branch consultations.
most peacekeeping activities is $1.38 billion, up to the 25%
cap. (For more information, see CRS In Focus IF10597,
During the past decade, U.S. policy toward the United
United Nations Issues: U.S. Funding of U.N.
Nations has varied. President Obama strongly supported
Peacekeeping.)
U.S. participation in the organization. President Trump
consistently proposed decreases in U.N. funding and
U.N. Funds and Programs
withheld contributions to some U.N. bodies. President
U.N. funds and programs are generally established by the
Biden generally supports U.S. engagement in and funding
GA and have a specific mandate. The SG appoints the head
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 funds and
the role of the United Nations in U.S. foreign policy. The
programs include the U.N. Development Program, U.N.
118th Congress has considered several overarching issues.
Environment Program, 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, UN Women, and U.N. Relief
issues (such as the Russia-Ukraine conflict and the October
and Works Agency for Palestine Refugees in the Near East.
2023 Hamas attacks on Israel), or that the HRC does not
Like U.N. funds and programs, these bodies often focus on
effectively address human rights violations (while
specific issues and rely on voluntary funding. Depending on
disproportionately focusing on Israel). At the same time,
the organization, their heads are appointed by the SG or
many acknowledge the benefits of the U.N. system,
elected by the GA.
particularly its convening power, burden-sharing principles,
and role in setting global norms and standards.
Other separate U.N.-related organizations such the
International Criminal Court, International Atomic Energy
U.S. funding and reform. Members may consider the
Agency, and International Organization for Migration are
benefits and drawbacks of U.S. funding to the U.N. system,
part of the U.N. system but not considered U.N. bodies.
including areas where the United States can use funding to
They may have special agreements with or report to U.N.
increase efficiency and accountability through reform, or to
bodies like the GA or SC.
achieve the largest return on its investment. Some
policymakers may also consider the impact, if any, of U.S.
U.S. Participation in the U.N. System
arrears or withholdings on U.S. influence on U.N. activities.
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 of inconsistent or reduced U.S. participation in
and is a permanent member of the SC. It is also a member
and funding of the U.N. system during the past decade,
of 13 U.N. specialized agencies and is often elected to
including the possible increase in influence within the U.N.
leadership positions on U.N. boards, councils, and other
of other countries relative to the United States. In particular,
bodies. U.S. participation in and funding of the United
many Members have expressed concern with what they
Nations is authorized through the United Nations
perceived to be China’s ongoing efforts to increase its
Participation Act of 1945 (P.L. 79-264, as amended).
influence in the U.N. system.
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
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
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
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11780 · VERSION 8 · UPDATED