The UN at Country Level
Handbook
Understanding the UN
What the UN is, what it does, and why it matters.
UN Photo/MB
“The UN was not created to take mankind to heaven, but to save humanity from hell.”
Dag Hammarskjöld,
Secretary-General 1953-1961
For many people outside the system – and even some within – the United Nations can be difficult to fully grasp. It is often seen as a single organisation, but in reality, the UN comprises many different parts: specialized agencies, funds and programmes, each with its own mandate, leadership, structure, and budget.
Most of the attention usually goes to what happens at UN Headquarters, especially in the political arena. But beyond the spotlight, the UN plays a vital role in supporting countries through development and humanitarian work. This work is widely appreciated, yet often not well understood. The details – how the UN operates in-country, how decisions are made, how programmes are planned and funded – can seem complex and unclear. This can be confusing even for diplomats, government officials, aid workers, and journalists.
Over the years, efforts have been made to make the UN system more accessible to partners and newcomers alike. Two earlier handbooks laid the groundwork for this microsite: one on the General Assembly and another on the Economic and Social Council—two key organs shaping global policy and development priorities. Together, they offer clear entry points into the UN’s institutional landscape.
A Walk Through Some UN Milestones
UN Photo/Loey Felipe
1945
Establishment of the United Nations Ratification of the UN Charter
The UN was established after World War II to maintain peace and security, promote human rights, and foster social and economic development.The UN Charter is the foundational treaty of the United Nations. It sets out the purposes, principles, structure, and functioning of the United Nations.
1948
Adoption of the Universal Declaration of Human Rights (UDHR)
The UN General Assembly adopted the UDHR, affirming fundamental human rights and freedoms for all people.
UN Photo
1948
First UN Peacekeeping Mission (UNTSO)
Establishment of the United Nations Truce Supervision Organisation to monitor the ceasefire after the Arab-Israeli war, initiating UN peacekeeping efforts.
1956
Establishment of the first UN Peacekeeping force
The United Nations Emergency Force (UNEF) in 1956 was the first-ever United Nations peacekeeping force, created in response to the Suez Crisis. It marked a major turning point in the role of the UN in international conflict resolution.
1966
Adoption of the International Bill of Human Rights
The UN General Assembly adopted two foundational treaties: ‘The International Covenant on Civil and Political Rights’ and ‘The International Covenant on Economic, Social and Cultural Rights’.
1992
Earth Summit, Rio De Janeiro
The Rio Summit, officially known as the United Nations Conference on Environment and Development, was held in Rio de Janeiro, Brazil, in June 1992. It's commonly called the Earth Summit and marked a historic moment in global environmental diplomacy.
UN Photo/Michos Tzovaras
1992
Creation of the Department of Humanitarian Affairs
Established by the Secretary-General in 1992 to improve the coordination of humanitarian assistance, it was later reorganised and renamed the Office for the Coordination of Humanitarian Affairs (OCHA) in 1998.
2000
Millennium Summit: MDGs
The UN’s Millennium Development Goals, were eight global development goals, with a target date of 2015. They represented a unified international effort to reduce poverty, improve health and education, promote gender equality, and ensure environmental sustainability.
UN Photo/Rick Bajornas
2002
Establishment of the International Criminal Court (ICC)
The ICC is the world’s first permanent international court established to prosecute individuals for the most serious crimes that concern the international community as a whole.
2005
Establishment of the Peacebuilding Commission
Dedicated body to coordinate post-conflict peacebuilding efforts and support sustainable peace.
UN Photo/Jean Marc Ferré
2006
Establishment of the Human Rights Council (HRC)
The General Assembly establishes the HRC. The body is responsible for promoting and protecting human rights around the world.
2015
Paris Agreement
The Paris Agreement of 2015 is a landmark international treaty adopted by nearly every country in the world to address climate change and its negative impacts. It was adopted on December 12, 2015, during the 21st Conference of the Parties (COP21) to the United Nations Framework Convention on Climate Change (UNFCCC) in Paris, France.
UN Photo/Mark Garten
2015
Adoption of the 2030 Agenda for Sustainable Development
The UN introduced 17 Sustainable Development Goals (SDGs) to guide global development efforts.
2018
UN Development System Reform (Resolution 72/279)
Reform of the Resident Coordinator system to enhance UN coherence and efficiency at country level.
2020
UN75 Declaration
To mark its 75th anniversary, the UN launched a global consultation and adopted a declaration calling for a more inclusive, networked, and effective multilateralism—laying the groundwork for the Summit of the Future.
2024
Pact for the Future
Adopted at the Summit of the Future, the Pact outlines a renewed vision for multilateral cooperation, including global governance reform, digital cooperation, youth engagement, and a more sustainable funding model.
UN vehicles in Lebanon. © Keystone/AFP/Joseph Barrak
The Handbook – The UN at Country Level: A Practical Guide to the United Nations Operational System explains how the UN works in practice. It breaks down complex structures and processes in a clear and accessible way, helping readers understand how the UN is funded, how agencies coordinate, and what challenges they face. Whether you are a diplomat, development professional, journalist, or simply someone who wants to gain a deeper understanding of the UN, this guide will help you navigate its work in a straightforward and accessible manner.
Nicole Ruder, Vice-Director, Head of Multilateral Affairs and NGOs Division, Federal Department of Foreign Affairs, Switzerland
“While we live in challenging times, we know that with the right level of political and financial commitment the world can make real progress towards the Sustainable Development Goals by 2030 — and leave no one behind.”
UN Deputy Secretary-General
Amina J. Mohammed
UN Photo/Eskinder Debebe
Ukraine © OCHA Ukraine. © Evhenii Maloletka
Mandates
CHAPTER 1
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
What is the UN, what is it intended for, what is its legitimacy based on and what is it supposed to do?
The UN stands as the only universal platform where countries join together to confront and find solutions to the world’s most pressing challenges. With 193 Member States, it is the sole organization that includes nearly every country in the world as a member or observer. In the founding document of the UN – the UN Charter – Member States articulate their desire to maintain peace and security, promote social progress and uphold human rights.
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Jijiga, Somali region, Ethiopia. © WHO/Julie Pudlowski
The UN operational system
CHAPTER 2
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
How does the UN operational system implement its mandates?
UN COUNTRY-BASED WORK covers all four mandates: peacekeeping and peacebuilding; human rights protection and promotion; humanitarian assistance; and sustainable development. The four areas are interconnected: peace is not possible without development and there can be no development without peace. Humanitarian assistance cannot replace the political will for peace and development, nor ensure the protection of human rights. Thus, these elements must be considered together when shaping policies or developing programmes and projects. The operational implications of an integrated, holistic approach are referred to as the Humanitarian-Development-Peace collaboration. The term “UN operational system”, as used in subsequent chapters, refers to the network of UN agencies and entities delivering development, humanitarian and human rights assistance in-country.
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Mont Plaisir, Seychelles. © UN/Julie Pudlowski
The UN set-up at country level
CHAPTER 3
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
How is the UN operational system organized at country level in development, humanitarian and mission settings?
The UN operates in various settings in Member States. The context and the needs of individual countries define the size and type of UN operational presence. Worldwide, the largest UN presence is found in development settings.
GO TO CHAPTER 3Ms. Gita Sabharwal, UN Resident Coordinator in Indonesia. BAPPENAS UN Forum on Development Cooperation 2024 © UN Indonesia,
Who is the UN Resident Coordinator?
The UN Resident Coordinator is the top UN official in a country. Appointed by the UN Secretary-General, they lead and coordinate all UN development work and serve as the main link between the UN and the national government. They guide how the UN supports the country’s progress on the 2030 Agenda for Sustainable Development.
What are the key responsibilities of the UN Resident Coordinator?
- Represent the UN with government leaders and work closely with civil society, academia, and businesses.
- Coordinate UN activities to help countries achieve the Sustainable Development Goals (SDGs).
- Oversee the design, implementation, and monitoring of the UN Cooperation Framework, together with the host government.
- Promote the UN’s core values, such as human rights and gender equality, and ensure no one is left behind.
Kilosa, Morogoro region, United Republic of Tanzania.© UN/Julie Pudlowski
Funding the UN and its operational activities
CHAPTER 4
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
Who funds the UN and how different types of funding can impact its work?
The UN is funded almost entirely by its Member States. Their contributions are either direct or indirect. Direct contributions include mandatory membership fees (known as “assessed contributions”) and voluntary contributions. Indirect contributions include funding channeled through mechanisms such as financial intermediary funds (FIFs) or through large multilateral organizations, such as the World Bank and the European Union. Various annual reports dissect the volume, sources and trends in UN funding.
Where UN funding comes from
Based on average data from reports of Dag Hammarskjöld Foundation and MPTF office.
Voluntary contributions by Member States
Assessed contributions from Member States
Global funds, WB, EU, etc.
Private contributions
Other revenue
Matemwe, Kaskazini District, Zanzibar. © UN/Julie Pudlowski
Designing country programmes
CHAPTER 5
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
How does the UN develop its country and context-specific development and humanitarian programmes?
In host countries, the UN operates on the basis of specific planning documents that cover a defined period or “cycle”. These documents are developed under the leadership of the Resident Coordinator (RC) or RC/Humanitarian Coordinator (RC/HC), in collaboration with the host government and other partners.
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Abu Dhabi, United Arab Emirates. Keystone/AFP/Karim Sahib
Managing country projects
CHAPTER 6
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
What are the “nuts and bolts” of UN project implementation in humanitarian and development settings?
Programmes and projects are the basic building blocks of UN operational activities in the area of sustainable development and humanitarian assistance. While there are variations in timelines, nomenclature and methods, the majority of UN development and humanitarian work in-country is guided by classic project cycle management. Both the Cooperation Framework (UNSDCF) and the Humanitarian Needs and Response Plan (HNRP) are implemented through programmes and projects carried out by one or more UN agencies in-country.
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Za-Kpota, Zou Department, Benin. © UNICEF/Julie Pudlowski
Accountability and oversight
CHAPTER 7
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
How does the UN respond to irregularities and misconduct?
It is important to distinguish between the institutional accountability of UN agencies and the personal accountability of their staff. To ensure accountability, agencies are required to comply with specific budgeting and performance/financial reporting standards, environmental policies and geographic and gender representation prerequisites in their operations and recruitment practices. The accountability of officials of UN agencies is determined by the manner in which they discharge their official duties, including their personal conduct outside their official sphere of work (see chap. 6). Such obligations are spelled out in various accountability frameworks across the UN system.
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Medellin, Colombia. © Keystone/ VWPICS/Lucas Vallecillos
Working with partners at country level
CHAPTER 8
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
How does the UN collaborate with other actors on development and humanitarian efforts?
The UN operational system, in addition to engaging with the host country, works with numerous external partners. These include bilateral development and humanitarian partners, civil society, the private sector, academia, the Red Cross and Red Crescent Movement and international financial institutions (IFIs), including multilateral development banks (MDBs).
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Lesbos, Greece. © Keystone/AP/Panagiotis Balaskas
Headquarters coordination and support
CHAPTER 9
“What the UN is, what it is intended for, what its legitimacy is based on and what it is supposed to do.”
Which regional and global structures support UN operational work in-country?
All member agencies of the UN country team (UNCT) have their own headquarters, while the functions of the Resident Coordinator/Humanitarian Coordinator (RC/HC) have dedicated back offices that are part of the UN Secretariat, namely, the Development Coordination Office (DCO) and the Office for the Coordination of Humanitarian Affairs (OCHA). Regional offices and regional platforms provide additional decentralized coordination and support functions. Global-level inter-agency coordination and intergovernmental oversight also take place at UN Headquarters.
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