United States Commitment to Peacekeeping Act of 2023

I 118TH CONGRESS 1ST SESSION H. R. 4169 To repeal the 25 percent cap on United States contributions to United Nations peacekeeping operations, and for other purposes. IN THE HOUSE OF REPRESENTATIVES JUNE 15, 2023 Ms. JACOBS (for herself, Ms. KAMLAGER-DOVE, Mr. JACKSON of Illinois, Mr. PHILLIPS, and Mr. CASTRO of Texas) introduced the following bill; which was referred to the Committee on Foreign Affairs A BILL To repeal the 25 percent cap on United States contributions to United Nations peacekeeping operations, and for other purposes. Be it enacted by the Senate and House of Representa- 1 tives of the United States of America in Congress assembled, 2 SECTION 1. SHORT TITLE. 3 This Act may be cited as the ‘‘United States Commit- 4 ment to Peacekeeping Act of 2023’’. 5 SEC. 2. FINDINGS. 6 Congress finds as follows: 7 (1) United Nations peacekeeping operations are 8 a critical force-multiplier for the United States, and 9 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00001 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 2 •HR 4169 IH decades of research has found peacekeeping to be 1 highly effective in reducing civilian deaths, short- 2 ening the duration of conflicts, containing the geo- 3 graphic spread of war, and reducing the likelihood of 4 conflict reoccurrence and sexual and gender-based 5 violence. 6 (2) The Government Accountability Office 7 found in 2006 and 2018 reviews that it is 8 times 8 cheaper to financially support a United Nations mis- 9 sion than to deploy United States military forces. 10 (3) Every member state of the United Nations 11 is legally required to finance the peacekeeping budg- 12 et of the United Nations in order to ensure that 13 these missions are properly resourced, and assess- 14 ment rates are renegotiated every 3 years by the 15 United Nations General Assembly. The United 16 States has consistently voted in favor of these rate 17 structure changes, including during the most recent 18 round of negotiations in 2021, when United States 19 peacekeeping contributions were set at 26.94 per- 20 cent. 21 (4) Since fiscal year 2017, the United States 22 has accrued more than $1.28 billion in debt on its 23 financial obligations to United Nations peace- 24 keeping, due to congressional enforcement of a 1994 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00002 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 3 •HR 4169 IH law that limits United States contributions to 25 1 percent of the total United Nations peacekeeping 2 budget in any fiscal year after 1995. 3 (5) Since fiscal year 2000, Congress has, on a 4 bipartisan basis, lifted the 25 percent cap 15 times, 5 including retroactively for calendar years 2006–2008 6 during the Bush Administration. 7 (6) In 2019, the Department of State reported 8 to Congress the following impacts of growing United 9 States arrears to the United Nations: ‘‘(1) Loss of 10 vote or inability to be a member of governing bodies; 11 (2) Diminished U.S. standing and diminished ability 12 to pursue U.S. priorities; (3) Reduced U.S. ability to 13 promote increased oversight and accountability 14 through reforms that promote efficiency, cost sav- 15 ings, and improved management practices; (4) Re- 16 duced standing needed to successfully promote quali- 17 fied U.S. citizens to assume senior management 18 roles; and (5) Impairments of peacekeeping missions 19 to operate, including addressing objectives that may 20 directly impact the national security of the United 21 States’’. 22 (7) The ongoing accrual of arrears by the 23 United States is having a negative impact on the fi- 24 nancial health of United Nations peacekeeping with 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00003 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 4 •HR 4169 IH low and middle-income countries, who voluntarily 1 provide the bulk of the troops, police, and equipment 2 to these missions, not being adequately reimbursed 3 for their contributions and shouldering an increasing 4 financial burden. 5 (8) Budgetary shortfalls created by United 6 States arrears make it difficult to address shortages 7 of critical equipment needed by United Nations 8 peacekeeping operations to be effective in the field. 9 (9) Prior to Russia’s invasion of Ukraine, 10 Ukraine provided nearly 17 percent of all air assets 11 on United Nations peacekeeping missions. Since the 12 start of the war, Ukraine has been forced to with- 13 draw most of these to defend its own territory, caus- 14 ing shortages for missions that already lacked suffi- 15 cient quantities of aircraft. United States budgetary 16 shortfalls make it harder for other countries to step 17 in, as they cannot be certain when or if they will re- 18 ceive full reimbursement for their contributions. 19 (10) The People’s Republic of China is now the 20 second largest financial contributor to United Na- 21 tions peacekeeping, having gone from an assessment 22 rate of just 3 percent in 2008 to more than 18 per- 23 cent in 2023, and is the tenth largest troop-contrib- 24 utor to United Nations missions, providing more 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00004 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 5 •HR 4169 IH personnel than the other four permanent members of 1 the Security Council combined. 2 (11) The People’s Republic of China has used 3 this expanded influence to argue against human 4 rights, civilian protection, and gender-based violence 5 personnel within United Nations peacekeeping oper- 6 ations, in part using United States funding short- 7 falls as a pretext to downsize peacekeeping missions. 8 (12) United Nations Security Council Resolu- 9 tion 1325 called for women to take on a greater role 10 in preventing and resolving conflicts, including by 11 serving in United Nations peacekeeping missions. 12 Studies conducted by the United Nations in support 13 of the resolution based on the organization’s past ex- 14 periences in Cambodia, Kosovo, Timor-Leste, Af- 15 ghanistan, Liberia, and Democratic Republic of the 16 Congo show that female peacekeepers can be better 17 positioned to gain the trust of women within the 18 local population, something that is critical to the 19 success of any peacekeeping effort. 20 (13) Nevertheless, in 2020, women constituted 21 only 4.8 percent of military contingents and 10.9 22 percent of formed police units deployed on United 23 Nations peacekeeping missions. While the United 24 Nations continues to call for member states to con- 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00005 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 6 •HR 4169 IH tribute more women peacekeepers, resource and 1 budget constraints have made troop-contributors less 2 willing to provide women peacekeepers, and missions 3 themselves lack adequate resources to retrofit bases 4 to accommodate women. 5 (14) Prior to fiscal year 2017, when the United 6 States was paying its peacekeeping dues at the full 7 assessed rate, the United States and the United Na- 8 tions worked together to institute a number of cost- 9 saving and efficiency reforms, including reducing the 10 cost per peacekeeper by 18 percent, reducing the 11 number of support staff, and shortening the timeline 12 between when a mission is mandated and when per- 13 sonnel, equipment, and services are fully deployed. 14 (15) Beginning in 2015 and with the support of 15 the United States, the United Nations strengthened 16 measures to combat sexual abuse and exploitation by 17 peacekeepers, including strict timelines for com- 18 pleting investigations, immediate response teams in- 19 side peacekeeping missions to handle allegations, 20 suspending payments to countries whose troops face 21 credible allegations of misconduct; repatriation of 22 units engaged in systematic abuse, establishing an 23 online database to track allegations and investiga- 24 tions, appointing the first Special Coordinator on 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00006 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 7 •HR 4169 IH Improving the United Nations Response to Sexual 1 Exploitation and Abuse and the first Victims’ Rights 2 Advocate, and establishing a trust fund to support 3 and assist victims. 4 (16) Improving the United States financial 5 standing at the United Nations would allow the 6 United States to more effectively advocate for a 7 range of reform efforts, including supporting strate- 8 gies that have been particularly effective in reducing 9 sexual and gender-based violence where peacekeepers 10 operate, while also continuing to strengthen meas- 11 ures to end instances of sexual exploitation and 12 abuse in United Nations peacekeeping operations. 13 (17) Improving the United States financial 14 standing at the United Nations would also support 15 efforts to increase representation of Americans in 16 key roles at the United Nations Secretariat. 17 (18) In 2024, the scale of assessments negotia- 18 tions will occur again and a demonstrated willing- 19 ness to pay United States assessments in full will 20 play an important role in garnering support from 21 other United Nations member states. 22 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00007 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 8 •HR 4169 IH SEC. 3. STATEMENT OF POLICY CONCERNING UNITED 1 STATES ENGAGEMENT REGARDING UNITED 2 NATIONS PEACEKEEPING OPERATIONS. 3 (a) IN GENERAL.—It is the policy of the United 4 States that the Permanent Representative of the United 5 States to the United Nations— 6 (1) support the development and implementa- 7 tion of standard performance assessment systems 8 and investigative measures to identify exemplary 9 performance and address mission-specific and sys- 10 tem-wide weaknesses; 11 (2) support the full implementation of a man- 12 agement reform agenda that decentralizes decision- 13 making authority, simplifies and streamlines policy 14 and processes, and strengthens accountability and 15 transparency for managing United Nations offices 16 and functions; 17 (3) advocate for the development of a common 18 political strategy in-country among relevant actors, 19 including regional organizations, United Nation 20 member states, international financial institutions, 21 and United Nations agencies, funds, and programs; 22 (4) advocate for robust engagement with host 23 countries and local communities, including by advo- 24 cating for resources to be directed to community-led 25 peace initiatives; 26 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00008 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 9 •HR 4169 IH (5) support efforts to deploy more mobile, 1 adaptable, and agile forces for more effective United 2 Nations peacekeeping operations; 3 (6) support the development of a system-wide 4 strategy on sustainable peacekeeping transitions that 5 ensure planning and decision-making is based on 6 measurable benchmarks, including ensuring the pro- 7 tection of civilians; 8 (7) lead and advocate for efforts to promote 9 and protect internationally recognized human rights 10 standards regarding United Nations peacekeeping 11 operations, including the robust funding and support 12 of human rights positions; 13 (8) advocate for efforts to develop a more com- 14 prehensive plan for accountability and justice, par- 15 ticularly relating to tracking misconduct and inclu- 16 sion of survivors in decision-making, for peace- 17 keepers and other United Nations staff involved in 18 sexual exploitation, abuse, or other violations of 19 human rights that contravene United Nations and 20 United States rules, regulations, or values; 21 (9) engage in dialogue with United Nations 22 member states to secure a more favorable modifica- 23 tion of United Nations scales of assessments of the 24 peacekeeping budget that works to diversify the 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00009 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 10 •HR 4169 IH funding base and create a sustainable funding plan; 1 and 2 (10) support implementation of United Nations 3 Security Council Resolution 1325 by working with 4 the United Nations and United Nations member 5 states to increase the meaningful participation of 6 women in United Nations peacekeeping operations. 7 (b) ADVOCACY OF PEACEKEEPING REFORMS AT THE 8 UNITED NATIONS.—The Secretary of State shall instruct 9 the Permanent Representative of the United States to the 10 United Nations to use the voice, vote, and influence of the 11 United States at the United Nations to accomplish the 12 policy specified in subsection (a), consistent with the na- 13 tional security interests of the United States. 14 SEC. 4. REPEAL OF THE 25 PERCENT CAP ON UNITED 15 STATES CONTRIBUTIONS TO UNITED NA- 16 TIONS PEACEKEEPING OPERATIONS. 17 (a) IN GENERAL.—Subsection (b) of section 404 of 18 the Foreign Relations Authorization Act, Fiscal Years 19 1994 and 1995 (Public Law 103–236; 22 U.S.C. 287e 20 note; relating to a limitation on United States contribu- 21 tions to United Nations peacekeeping operations) is re- 22 pealed. 23 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00010 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 11 •HR 4169 IH (b) TECHNICAL AND CONFORMING AMENDMENT.— 1 Section 404 of the Foreign Relations Authorization Act, 2 Fiscal Years 1994 and 1995 is amended by striking— 3 ‘‘(a) REASSESSMENT OF CONTRIBUTIONS PERCENT- 4 AGES.—’’. 5 SEC. 5. REPORTS ON UNITED STATES EFFORTS TO 6 ACHIEVE UNITED NATIONS PEACEKEEPING 7 REFORM. 8 Section 4 of the United Nations Participation Act of 9 1945 (22 U.S.C. 287b) is amended— 10 (1) in subsection (c)— 11 (A) in paragraph (3)— 12 (i) by striking subparagraph (B); and 13 (ii) by redesignating subparagraph 14 (C) as subparagraph (B); 15 (B) by redesignating paragraphs (4) and 16 (5) as paragraphs (5) and (6), respectively; 17 (C) by inserting after paragraph (3) the 18 following new paragraph: 19 ‘‘(4) UNITED NATIONS PEACEKEEPING RE- 20 FORM.—A description of the status of United States 21 efforts in the United Nations to ensure the United 22 Nations— 23 ‘‘(A) develops and implements standard 24 peacekeeping operation performance assessment 25 VerDate Sep 11 2014 23:28 Jul 24, 2023 Jkt 039200 PO 00000 Frm 00011 Fmt 6652 Sfmt 6201 E:\BILLS\H4169.IH H4169 pbinns on DSKJLVW7X2PROD with $$_JOB 1 [Text truncated for display. Full text available on Congress.gov.]