The U.N. Population Fund: Background and the U.S. Funding Debate

Luisa Blanchfield
Specialist in International Relations

The United Nations Population Fund (UNFPA), established in 1969, is the world's largest source of population and reproductive health programs and the principal unit within the United Nations for global population issues. In 2009, the organization provided services in 155 developing and transition countries, with funds totaling $783.1 million, drawn primarily from voluntary contributions made by nations and some foundations.

The United States, with strong support from Congress, was an important actor in the launch of UNFPA in 1969. During the mid-to-late 1960s, Congress began to express heightened concern over the impact of rapid population growth on development prospects in poor countries. In 1967, Congress earmarked funds for population assistance programs, urging the United States to channel family planning resources through the United Nations and other international organizations.

Since it was established, UNFPA has transitioned from an organization focused on statistical collection and analysis to an agency providing maternal and child health/family planning assistance. UNFPA played a large role in shaping the 1994 International Conference on Population and Development, held in Cairo. The Cairo Conference marked a turning point in the international debate over the impact of population issues on global development, and established a policy framework called the Plan of Action that continues to guide current family planning and reproductive health policies, including the work of UNFPA. The Plan integrated population concerns into the broad context of development—concluding that education and health, including reproductive health, were prerequisites for sustainable development.

In the past three decades, there has been continuing and contentious debate within the United States, especially among Members of Congress, as to whether the United States should financially support UNFPA. This debate has centered on the extent to which, if any, UNFPA aids China's coercive family planning programs and policies. In 15 of the past 25 years, the United States did not contribute to the organization as a result of executive branch determinations that UNFPA's program in China violated the "Kemp-Kasten" amendment, which bans U.S. aid to organizations involved in the management of coercive family planning programs. From FY2002 through FY2008, the George W. Bush Administration found UNFPA ineligible for funding under the Kemp-Kasten amendment.

In March 2009, President Barack Obama expressed his support for UNFPA and announced that the United States would contribute $50 million to the organization as directed in the Omnibus Appropriations Act, 2009 (P.L. 111-8). On December 16, 2009, President Obama signed the Consolidated Appropriations Act, 2010 (P.L. 111-117). Division F of that bill, the Department of State, Foreign Operations, and Related Programs Appropriations Act, 2010, directed that $55 million should be made available for UNFPA. For FY2011, the Obama Administration requested $50 million for U.S. contributions to UNFPA, which would be drawn from the International Organizations and Programs account (IO&P).

While UNFPA receives voluntary contributions from many countries and some private foundations, most of its income comes from a handful of donors. The Netherlands, Sweden, and Japan have consistently been the largest contributors. In 2009, the U.S. contribution to UNFPA was the fourth-largest donation, representing approximately 9.5% of UNFPA's annual regular budget.


Date of Report: June 15, 2010
Number of Pages: 34
Order Number: RL32703
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