At the same time, U.S. policy makers—particularly some Members of Congress—have expressed concern with UNESCO's apparent politicization, lack of budget discipline, and perceived leanings toward anti-democratic countries. Since the United States rejoined the organization in 2003, Congress has demonstrated support for UNESCO—appropriating about $618.6 million in regular budget contributions and $9.5 million in voluntary contributions from FY2004 through FY2011. As a result of this decision, the United States withheld its contributions to UNESCO in accordance with two laws enacted in the 1990s that prohibit funding to U.N. entities that admit the Palestine Liberation Organization (PLO) as a member ( P.L. 103-236 ). From FY2012 through FY2014, the United States withheld nearly $80 million per year, or 22% of the UNESCO annual regular budget. The Obama Administration actively opposes Palestinian membership in UNESCO. Organization and Structure

UNESCO programs and activities encompass five sectors—education, natural sciences, social and human sciences, culture, and communication and information. More than 2,000 personnel from 170 countries work for UNESCO; approximately 850 staff work in the organization's 65 field offices and institutes worldwide. UNESCO's relationships with other organizations are strengthened by National Commissions established by member governments in their respective countries. Funding and Budget

UNESCO activities are funded through a combination of assessed contributions by member states to the regular budget; voluntary contributions by member states, organizations, and others to special programs; and funds provided by partners such as other U.N. entities, NGOs, and the private sector. Effectiveness and Reform

Many U.S. policy makers generally support UNESCO's aim of promoting international collaboration in the fields of education, science, and communication. Organizational Culture and Priorities

Some experts contend that UNESCO's organizational structure and culture hinder its ability to fulfill its objectives. Recent Reform Activities

Over the years, UNESCO member states have sought to improve the organization's effectiveness through a range of reform efforts. Many observers, including some in the United States, agree that UNESCO has successfully implemented various reforms, particularly during the time between the United States' decision to withdraw from the organization in 1984 and its return in 2003. The full impact of these recent reform efforts is still unclear. Their overall success—and the success of any future reform efforts—will largely depend on how effectively both UNESCO and its member countries follow through on implementation. At the same time, U.S. policy makers, including some Members of Congress, have been critical of the organization, leading to the United States' nearly 20-year withdrawal in 1984, followed by its subsequent decision to rejoin in 2003. As previously mentioned, two provisions in U.S. law prohibit funding to U.N. entities that admit the PLO as a member or grant full membership as a state to any organization or group that does not have the internationally recognized attributes of statehood: 
Section 410 of the Foreign Relations Authorization Act, Fiscal Years 1994 and 1995 ( P.L. Obama Administration officials stated that the GC's decision was "regrettable and premature," and emphasized that the United States "remains steadfast in its support for the establishment of an independent and sovereign Palestinian state.... [S]uch a state can only be realized through direct negotiations between the Israelis and Palestinians." In November 2013, the United States lost its vote in the UNESCO General Conference (GC) under Article IV of the organization's constitution. They recognized the organization as a "critical partner," and noted that the United States intends to "continue its engagement with UNESCO in every possible way." Priorities

An area of ongoing concern among some U.S. policy makers is the impact that the U.S. withholding and loss of voting rights in the GC may have on U.S. influence within UNESCO. Some also worry that the financial withholding has negatively impacted activities that the United States views as priorities—including Holocaust education programs, tsunami early warning systems, educational programs for women and girls, World Heritage sites (see text box on next page), and various training and literacy programs in the Middle East. Impact of Withholding on UNESCO Programs and Activities

U.S. and international policy makers generally agree that the U.S. withholding has negatively affected the scope and effectiveness of UNESCO's programs and activities. There are disagreements, however, regarding the extent of this impact. Ultimately, the long-term impact of the U.S. withholding on UNESCO activities remains to be seen, and may depend on
the fiscal or organizational actions, if any, UNESCO continues to take in response to the sudden funding decrease (for example, further adjustments to the organization's budget and programming in both the short and long-term by the Executive Board, GC, and/or DG); the extent to which UNESCO can continue to solicit extrabudgetary contributions from other countries, other international organizations, or the private sector, to cover any budget shortfalls; or when, if at all, the United States resumes financial contributions to UNESCO (for example, if the United States withholds UNESCO funding for 4 years, the impact would be far less than if it were to withhold contributions for 10 years). Effectiveness of Funding Restrictions

The U.S. financial withholding from UNESCO has raised broader issues about the effectiveness of the legislative restrictions that prohibit U.S. contributions to U.N. entities that admit Palestine as a member. They argue that if the United States were to modify the legislative restrictions to allow for UNESCO funding, it would undermine U.S. credibility and provide a "green light" for Palestine to apply for membership in entities across the U.N. system. Role of UNESCO in U.S. Foreign Policy

The role of UNESCO, and multilateralism as a whole, in U.S. foreign policy is one of the underlying issues facing policy makers as they consider U.S. funding of and participation in the organization. In addition to concerns regarding Palestinian membership, some critics of UNESCO maintain that its activities do not reflect U.S. foreign policy interests. Supporters of UNESCO maintain that the organization plays a key role in global issues that the United States views as strategic priorities, particularly education, science, cultural heritage, and media freedom. A key obstacle is governments' differing perspectives on UNESCO's role in the global multilateral framework. Each country has its own foreign policy priorities, political agenda, and perceptions of how the organization should work. Such differences sometimes lead to fundamental disagreements on budgeting, programming, and, as most recently demonstrated, membership.
Recent international events have renewed congressional interest in the United Nations Educational, Scientific and Cultural Organization (UNESCO). UNESCO is a specialized agency of the U.N. system that promotes collaboration among its member countries in the fields of education, natural sciences, social and human sciences, culture, and communications and information. With an annual budget of approximately $326 million, it supports nearly 2,000 staff members working at its headquarters in Paris and 65 field offices and institutes worldwide. UNESCO activities are funded through a combination of assessed contributions by member states to its regular budget, and voluntary contributions by member states and organizations.
U.S. Policy
The United States is a member of UNESCO and generally supports the organization's objectives. Over the years, however, some U.S. policy makers—particularly some Members of Congress—have expressed strong concern with UNESCO's politicization and, as some have alleged, lack of budget discipline and anti-democratic leanings. These concerns led to the United States' decision to withdraw from UNESCO in 1984. Since the United States rejoined the organization in 2003, Congress has demonstrated support for UNESCO—appropriating between $73 million and $84 million in assessed contributions per fiscal year, or about 22% of UNESCO's annual regular budget. It has maintained an ongoing interest in ensuring that UNESCO runs as efficiently and effectively as possible, and that its policies and programs are in line with U.S. priorities.
Palestinian Membership: U.S. Financial Withholding, FY2012–FY2014
Since late 2011, UNESCO has received significant U.S. and international attention resulting from member states' decision to admit "Palestine" as a member. The Obama Administration and many Members of Congress vehemently opposed this action, maintaining that Palestinian statehood can only be realized through direct negotiation between Israelis and Palestinians rather than through membership in U.N. entities. Subsequently, the United States withheld approximately $80 million in FY2012 through FY2014 funding to UNESCO. Two laws enacted in the 1990s prohibit funding to U.N. entities that admit the PLO (Palestine Liberation Organization) as a member (P.L. 101-246), or grant full membership as a state to any organization or group that does not have the internationally recognized attributes of statehood (P.L. 103-236). The Obama Administration asked Congress to enact legislation to waive the aforementioned restrictions.
In November 2013, as a result of the financial withholding, the United States lost its vote in the UNESCO General Conference (GC), the organization's main decision-making body. The Obama Administration has emphasized that the United States remains a member of the organization and that it intends to "continue its engagement with UNESCO in every possible way."
Reform
Since UNESCO's establishment, member states have sought to improve the organization's effectiveness through reform. Many observers, including the United States, agree that UNESCO has successfully implemented various reforms, particularly during the time between the United States' decision to withdraw from the organization in 1984 and its return in 2003. At the same time, many experts argue that the organization needs additional reform. Weaknesses in UNESCO's structure and culture, they contend, hinder its ability to fulfill its mission.
A 2010 Independent External Evaluation report commissioned by member states recommends changing some of UNESCO's management processes, enhancing UNESCO's field presence, and strengthening the organization's governance mechanisms. Ultimately, the full impact of these and other reform efforts is unclear. Their success—and the success of any future reforms—will likely depend on how effectively both UNESCO and its members follow through on implementation.
Issues for the 113th Congress
The recent controversy over Palestinian membership and loss of the United States' vote in the General Conference—coupled with broad concerns about spending levels in light of the recent economic downturn—have prompted some policy makers and observers to review the U.S. relationship with UNESCO. Examples of issues being considered are described below.
Effect on U.S. priorities. Some experts and policy makers worry that the U.S. financial withholding and loss of voting rights in the GC have negatively impacted programs and activities that the United States views as priorities—including U.S. World Heritage sites, Holocaust education programs, tsunami early warning systems, and educational programs for women and girls. The impact of the U.S. financial withholding on UNESCO's activities. Many experts agree that the U.S. withholding has adversely affected the scope and effectiveness of UNESCO's programs. There are disagreements, however, regarding the extent of this impact. The long-term implications of the withholding remain to be seen and are largely dependent on how long the United States withholds funds and what fiscal actions, if any, UNESCO continues to take in response to the funding decrease. The effectiveness of the U.S. withholding. Some policy makers argue that the legislative restrictions prompting the U.S. withholding are no longer relevant or effective and should be waived. Others, however, contend that waiving the legislation would undermine U.S. credibility and provide a "green light" for Palestine to apply for membership in entities across the U.N. system. UNESCO's role in U.S. foreign policy. Some critics of UNESCO maintain that its activities do not reflect U.S. foreign policy interests. Supporters contend that the organization plays a key role in global issues that the United States views as strategic priorities, particularly education and science. Challenges to UNESCO reform. A significant obstacle to UNESCO reform is governments' differing views on the organization's role in the global multilateral framework. Moreover, each UNESCO member state has its own foreign policy priorities, political agenda, and perceptions of how the organization should work. These differences can lead to disagreements on budgeting, programming and, as most recently demonstrated, membership.
This report will be updated as events warrant.