How Does the UN Work?

The UN is an organisation of Member States in which all 193 members participate in discussing international issues and making decisions. Its work is based on the Charter of the United Nations, which defines the organisation’s purposes, principles, structure and the responsibilities of its principal organs. Unlike a state, the UN does not have its own government or parliament. It functions through cooperation between its Member States: countries submit proposals, negotiate and adopt decisions on matters affecting international peace, security, development and human rights. Decision-making is largely based on finding compromises, which means negotiations can be lengthy and complex.

All UN Member States have equal rights and obligations within the organisation. Each country participates in the work of the UN through its diplomats and experts and represents its national positions and interests. Most Member States maintain a Permanent Mission at the UN Headquarters in New York, where diplomats participate daily in the work of various committees, working groups and organs. UN meetings are also held in Geneva, Vienna, Nairobi and other UN centres around the world. Although all Member States are equal within the UN, their role varies depending on the organ or committee in which they are serving. Members of the Security Council, for example, have greater decision-making authority on matters of international peace and security than other Member States.

Most UN decisions are the result of a multi-stage negotiation process. Usually, one or more Member States submit a proposal, known as a draft resolution, which is then discussed with other countries. During negotiations, the text is often amended several times to secure the broadest possible support. Once negotiations have concluded, the proposal is put to a vote. Depending on the organ concerned, decisions may be adopted by a simple majority, a two-thirds majority or by consensus. Consensus means that no Member State formally objects to the proposal and the decision is adopted without a vote. Consensus is preferred on many issues because it demonstrates broad support among Member States and helps facilitate the implementation of decisions.

UN organs adopt resolutions that express the common position or decision of Member States. The legal significance of a resolution depends on the organ that adopts it. General Assembly resolutions are generally not legally binding on Member States. They express the political will of the international community and can influence the development of international law, the conduct of states and public opinion. The Security Council, by contrast, may in certain circumstances adopt decisions that are binding on Member States. Such resolutions may concern, for example, the imposition of sanctions, the establishment of peacekeeping operations or other measures to maintain international peace and security.

Different voting rules apply in the various organs of the UN. In the General Assembly, every Member State has one vote, regardless of its size, population or economic capacity. Most decisions are adopted by a simple majority, but important questions—such as the admission of new members or approval of the budget—require a two-thirds majority. The Security Council has 15 members. Decisions on procedural matters require at least nine votes in favour. On substantive matters, in addition to nine affirmative votes, all five permanent members must support the decision, or at least none of them may exercise its veto.

One of the best-known features of the UN is the veto power held by the permanent members of the Security Council. China, France, Russia, the United Kingdom and the United States can prevent the adoption of a substantive resolution even when it is supported by a majority of Security Council members. The veto was included in the UN Charter when the organisation was established to ensure the participation of the major powers in international cooperation. In practice, it has helped prevent direct confrontation between the major powers within the UN, but it has also prevented the Security Council from responding swiftly to international crises on several occasions. The veto has therefore become one of the most widely debated issues in discussions on UN reform.

The UN Secretary-General is the organisation’s chief administrative officer and the head of the UN Secretariat. The Secretary-General directs the organisation’s day-to-day work, draws attention to international problems and, when necessary, mediates negotiations between Member States. The Secretary-General is appointed for a five-year term by the General Assembly upon the recommendation of the Security Council. Although the Secretary-General cannot make decisions that are binding on Member States, the office plays an important role in diplomacy, conflict prevention and coordinating the work of the UN.

The work of the UN is based primarily on diplomacy. Most decisions are not reached in a single meeting, but through lengthy negotiations involving Member States, UN officials, experts and, at times, civil society organisations. Because Member States have different interests and positions, reaching agreements often requires compromise. This can make the decision-making process slow, but it also helps ensure that as many countries as possible are prepared to implement the decisions adopted.

Although the UN decision-making process may seem complex, it reflects the nature of the organisation. The purpose of the UN is not to replace the governments of its Member States, but to provide a forum where countries can resolve disagreements peacefully and seek common solutions to global problems. The success of international cooperation often depends on whether countries can find common ground. This is why negotiations, compromises and multilateral decisions lie at the heart of the UN’s work.