History of UNSC Reform

In an article on America’s Strategy of Renewal published by Foreign Affairs magazine on 1^st October 2024, US Secretary of State Anthony Blinken set out the US position on UNSC reform consisting of adding two permanent members from Africa, one permanent member from Latin America and the Caribbean, permanent seats for Germany, India and Japan, and an elected seat for small island developing countries. The long-standing US position is that the additional permanent seats would not enjoy veto rights.

In a recent joint statement, India and Ukraine called for comprehensive reform of the UN Security Council to reflect contemporary global realities and to make it more representative, effective and efficient in dealing with issues of international peace and security. Ukraine reiterated its support for India’s permanent membership of a reformed and expanded UN Security Council.

In the Johannesburg Declaration released at the BRICS Summit, member countries underscored their support for comprehensive reform of the UN, including the Security Council. The declaration calls for a more democratic, representative, effective, and efficient Security Council, with increased representation for developing countries. It emphasizes the need for the Council to better address global challenges and support the legitimate aspirations of emerging and developing nations from Africa, Asia, and Latin America. This includes acknowledging the roles of Brazil, India, and South Africa in international affairs, particularly within the UNSC

UN Secretary-General António Guterres called for Africa to be granted a permanent seat on the UN Security Council as part of broader reforms to address historical injustices. Speaking at a debate convened by Sierra Leone, Guterres emphasized that the Council's current structure, dominated by the five permanent members (China, France, Russia, the UK, and the US), reflects a post-World War II reality that no longer aligns with today's global dynamics. He highlighted Africa's significant contributions to global peacekeeping and its underrepresentation in international decision-making, arguing that reform is both an ethical necessity and a strategic imperative.

On 12 August, the Security Council convened for a high-level debate titled “Addressing the historical injustice and enhancing Africa’s effective representation on the UN Security Council” under the “Maintenance of international peace and security” agenda item. This is one of the signature events of Sierra Leone’s August Council presidency. Sierra Leonean President Julius Maada Bio is expected to chair the meeting. The anticipated briefers are UN Secretary-General António Guterres, President of the UN General Assembly Dennis Francis, and a representative of academia.

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A virtual consultation led by H.E. Ambassador Bankole Adeoye, Commissioner for Political Affairs, Peace and Security (PAPS) of the African Union (AU), engaged African civil society organizations (CSOs) and stakeholders to advocate for the Common African Position on UNSC Reform. Discussions aimed to raise awareness and support for fair African representation in the UNSC, addressing historical injustices. Outcomes will inform the 11th Ministerial Meeting of the C-10 on UNSC Reform in Algiers, Algeria, on June 9-10, 2024, with participants pledging support for ongoing reform efforts.

Chinese Foreign Minister Wang Yi met with UNSC Reform co-chairs Albanai and Marschik in Beijing. Wang affirmed China's commitment to UN principles and advocated for reform to increase representation and participation, emphasising the importance of international consensus. Albanai and Marschik expressed appreciation for China's support and pledged collaboration in advancing reform efforts.

Guterres expressed deep concern over the UN Security Council's inability to address significant global security issues, such as the Israel-Hamas conflict in Gaza and Russia's invasion of Ukraine. Guterres lamented the lack of unity among council members, stating that it had severely undermined the council's authority. He noted the urgent need for reform in the council's composition and working methods. The United States recently vetoed a draft resolution for a ceasefire in Israel's offensive against Gaza, marking the third veto since the conflict began. Guterres warned that failure to act could lead to the council becoming "incapable of doing anything," highlighting the dire humanitarian situation in Gaza.

Brazil's Foreign Minister Mauro Vieira criticised the UN Security Council's failure to address conflicts like those in Ukraine and Gaza during the opening of a G20 meeting in Rio de Janeiro. Vieira underlined the need for international institutions to respond effectively to global challenges, highlighting the Security Council's paralysis. As the current G20 president, Brazil aims to use the platform to advocate for UN reform and address pressing issues such as conflict resolution and multilateral cooperation.

On February 17, 2024, Ruchira Kamboj, India's permanent ambassador to the United Nations, addressed the intergovernmental negotiations on Security Council Reform in New York. She queried, "So can we allow five permanent members to eternally override the collective voice of 188 member states? Let us not forget that this is the whole purpose of this reform, to right historical injustices and ensure inclusive decision-making through expansion, we feel in the permanent and non-permanent categories of membership, including reform in the working methods of the council, which also includes the question of the veto." Asserting the urgency to address the "historical injustices" faced by the global south, she emphasized that "it is time to rectify these disparities by ensuring greater representation for regions like Asia, Latin America, and Africa on the UNSC through reform in both its...".

Speaking at the third summit of the Group of 77 countries and China, in Kampala, on 21 January 2024, UN Secretary General Antonio Guterres said “Let us face it: those that benefit most from the present global governance system are unlikely to lead its reform. So, momentum for change must come from you. I urge you to keep driving these efforts forward.” More than 130 countries are members of the bloc – the largest grouping of the global South, representing 80 per cent of the world population.

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The adoption of a note on penholdership within the UNSC marks a significant milestone in ongoing efforts toward UNSC reform. Initiated by the E-10, the note outlines guidelines for the designation of "penholders," responsible for drafting and shepherding resolutions on specific agenda items. By emphasizing shared responsibility and meaningful participation of elected members, it promotes fairness, transparency, and inclusivity in the Council's decision-making process.

At the C-10 Summit on UNSC Reforms, Chairperson Mahamat stressed the urgency of advancing the Common African Position. He highlighted Africa's significant contributions to global peace and security and called for AU peace support missions to be funded through UN contributions. Mahamat underlined the importance for Africa to assume its rightful place in global decision-making and urged unity among African nations to achieve aspirations for two permanent seats on the UNSC.

Brazil's Foreign Minister, Mauro Vieira, criticised the UN Security Council's inaction on global crises, particularly the Israel-Gaza conflict, stating that it questions the council's raison d'être. Despite multiple meetings since October 7, the Council rejected four draft resolutions. Brazil, the US, and Russia submitted drafts, but permanent members Russia, China, and the US vetoed them. The General Assembly passed a non-binding resolution for a humanitarian truce, but the Security Council couldn't agree on any related text. Vieira emphasised the need for decisive action to end human suffering, highlighting the urgency of the situation on the ground in Israel and Gaza. This highlights the urgent need for reform within the Security Council to ensure it can effectively fulfil its mandate of maintaining international peace and security.

President Biden delivered an address to the UN General Assembly in New York City, emphasising the importance of overcoming historical animosities to forge partnerships for peace and progress. Biden reiterated the United States' commitment to global leadership, advocating for a more secure, prosperous, and equitable world. He specifically addressed the need to reform international institutions, including expanding permanent and non-permanent seats at the UNSC to increase representation and effectiveness to address modern challenges.

Sierra Leone’s Foreign Minister, Professor David Francis, alongside H.E. Dennis Sassou Nguesso, President of the Republic of Congo, inaugurated the 10th Foreign Minister’s meeting of the C-10. Emphasising Africa's common stance outlined in the Ezulwini Consensus and the Sirte Declaration, Professor Francis advocated for two Permanent Seats and five Non-Permanent Seats for Africa in the United Nations Security Council and proposed either the abolition or extension of the Veto power to new permanent members. The meeting centred on analysing recent developments regarding UN Security Council Reform, including outcomes from the Intergovernmental Negotiations during the 76th UN General Assembly session, reflecting on progress within the negotiation process, and strategising on the C-10's role in promoting the Common African Position.

The General Assembly convened its annual debate on Security Council reform, with speakers renewing calls for enlarging the 15-member body and updating its methods for transparency, inclusivity, and effectiveness in addressing global crises. Divergent views persisted in achieving reform, despite the appointment of co-chairs for intergovernmental negotiations. Some advocated for expanding both permanent and non-permanent membership, with specific attention to representation for small island states and Africa. Others proposed alternative models, such as Italy's suggestion for additional non-permanent seats. Permanent Council members like the United States and the United Kingdom supported varying degrees of expansion, while China cautioned against perpetuating dominance by developed nations. The debate showcased a spectrum of positions, with calls for substantive negotiations and a tangible commitment to reform.

38 Member States led by Liechtenstein and including the United States as a co-sponsor, tabled a resolution at the General Assembly that will automatically convene a meeting of the Assembly after a veto has been cast in the Security Council. The resolution, if adopted, will only apply during the remainder of the 76th session of the General Assembly.

On 5 April 2022 President Volodymyr Zelenskyy, president of Ukraine, at a meeting of the UN Security Council, said: ‘Remove Russia as an aggressor and a source of war from blocking decisions about its own aggression, its own war. And then do everything that can establish peace. Or show how you can reformat and really work for peace. Or if your current format is unalterable and there is simply no way out, then the only option would be to dissolve yourself altogether.’

On 24 February 2022 Russia invades Ukraine and, on 3 March 2022, Kemal Dervis and José Ocampo propose the possibility of overturning a permanent member’s veto. ‘This could be done by adding a clause to Article 27 that would allow a large double majority—representing, for example, at least two-thirds of member countries and two-thirds of the world’s population—to override a veto.’

The sterile debate on reform continues. 16 November 2021, during the 76^th meeting of the General Assembly, delegates noted that there had been 29 years of structured consideration of reform and 12 years of intergovernmental negotiations, without any progress. Every year the various groups simply reiterate their well-known positions with the P5 secure in their veto.

‘The Ministers underscored that no reform of the United Nations will be complete without the reform of the Security Council, including through the expansion of its membership in both permanent and non-permanent categories, in order to ensure adequate representation of developing countries. They affirmed that such a reform is critical for the Council to be able to adequately respond to global challenges. They expressed full support for each other’s candidatures for permanent seats in a reformed and enlarged UN Security Council. The Ministers welcomed the reform proposals of UN Secretary General and encouraged him to address the need for reform in other areas, including ensuring adequate geographical representation in the Secretariat, especially at higher levels, reviewing the funding and backstopping arrangements for special political missions, and strengthening the role of regional commissions.’

UNGA President H.E. Miroslav Lajčák appoints H.E. Mr. Kaha Imnadze, Permanent Representative of Georgia, and H.E. Mrs. Lana Zaki Nusseibeh, Permanent Representative of the United Arab Emirates, as Co-Chairs of the IGN.

Chair of IGN Afghanistan Ambassador Zahir Tanin publishes negotiation text

The text consists of input submitted by member states.

The UK and France voice support for granting permanent membership to the G4 and African representation among the permanent members, in addition to advocating for a pragmatic intermediate reform to break the deadlock, which would entail the creation of a new category of membership in which states could serve for terms longer than two years and would be eligible for permanent membership.

Note by the President of the General Assembly that collates the efforts made by the Chair of the Intergovernmental negotiations, the Permanent Representative of Afghanistan, Ambassador Zahir Tanin since February 2009 (A/63/960) consisting of three rounds of consultations.

France gives statement on UNSC Reform, Categories of membership

In a statement to the General Assembly by Ambassador Jean-Maurice Ripert:

France supports expansion of the Council in the two categories of members, permanent and non-permanent. …
Consideration should be given to the emergence of new powers who have the willingness and capacity to assume significant responsibilities.
Not creating new permanent seats would enlarge the gap between the composition of the Security Council and the reality of the contemporary world.
Those able to make a significant contribution (politically, financially, or militarily) to the United Nations’ maintenance of international peace and security should be able to fully utilize their capacities with a mandate corresponding to their size (demographically, economically and politically).

The relationship between the permanent members and the non-permanent members is an essential factor to the efficiency of the Council: the permanent members ensure continuity in the Council’s work. Imbalance between the two categories of members could have negative effects on the Council’s efficiency.
In the case of an expanded Security Council, we support the accession to permanent membership of Germany, Brazil, India, Japan, and Africa. This also raises the question of including an Arab country among the permanent members of the Security Council.

France and the UK support the option of an intermediate reform that would temporarily provide for seats with terms longer than two years and immediately renewable. At the end of this initial phase (that could last 15 to 20 years), a review conference should evaluate the impact of the reform and the necessity of completing the first phase of reform.

France supports granting the G4 and Africa permanent membership and the British-French proposal of intermediate reform, which would last 15 to 20 years, that would provide seats with immediately renewable terms longer than two years. This also raises the question of including an Arab country among the permanent members of the Security Council.

Building on the 2005 World Summit Outcome document, UN Secretary-General Ban Ki-moon released his report, Implementing the Responsibility to Protect, A/63/677 which called for reform of the way the P5 wielded their veto power. Citing a global attitude shift since the massacres in Cambodia, Rwanda, Srebrenica and elsewhere, Ban Ki-moon stated that the political costs had risen domestically and internationally for “anyone seen to be blocking an effective international response to an unfolding genocide or other high-visibility crime relating to the responsibility to protect.” The report describing the P5 veto power as a privilege of tenure and that the P5 had particular responsibility “to refrain from employing or threatening to employ the veto in situations of manifest failure to meet obligations relating to the responsibility to protect” in situations of genocide, war crimes, ethnic cleansing and crimes against humanity. It set out a three-pillar strategy for advancing the 2005 Summit Outcomes, consisting of the protection responsibilities of the State; international assistance and capacity-building; and timely and decisive response.

The UNGA adopts by consensus Decision 62/557 on the ‘Question of equitable representation on and increase in the membership of the Security Council and related matters’ that listed the five key reform issues comprising UNSC reform.

(e) Further decided that the basis for the intergovernmental negotiations would be as follows: (i) The positions and proposals of Member States, regional groups and other groupings of Member States; (ii) The five key issues: categories of membership; the question of the veto; regional representation; size of an enlarged Security Council and working methods of the Council; and the relationship between the Council and the General Assembly;

21 May 1996

UK Ambassador Sir John Weston gives statement on UNSC reform

The UK defends the utility and necessity of the veto.

22 May 1996

Russian Ambassador Sergey Lavrov on the Veto

Russia defends the necessity of and opposes any change to the veto.

23 May 1996

US Minister Counselor Cameron Hume gives statement on UNSC reform

US opposes any change to the veto.

US State Department releases a statement that:

• Germany and Japan should be added to the Council as permanent members;
• up to three more seats should be added to allow representation from various regions;
• consideration should be given to allowing non-permanent members to serve more than one consecutive term;
• the size of the Council should not exceed twenty members;
• Council procedures should be reviewed to ensure greater transparency and a flow of information to the overall UN Membership; and
• the powers of the current permanent members of the Council must be preserved.

UNGA passes Resolution A/RES/48/26, establishing an “Open-ended Working Group on the Question of Equitable Representation on and Increase in the Membership of the Security Council and Other Matters related to the Security Council,” and:

1. Decides to establish an Open-ended Working Group to consider all aspects of the question of increase in the membership of the Security Council, and other matters related to the Security Council;
2. Requests the Open-ended Working Group to submit a report on the progress of its work to the General Assembly before the end of its forty-eighth session;
3. Decides to include in the provisional agenda of its forty-ninth session an item entitled Question of equitable representation on and increase in the membership of the Security Council and related matters.

At its 84th plenary meeting, the UNGA adopts Resolution A/RES/47/62 on the “Question of equitable representation on and increase in the membership of the Security Council”, which calls for Member States to submit UNSC reform proposals by 30 June 1993 and a subsequent report containing comments made by Member States on the subject.

At its twenty-eighth session, the UNGA drew the attention of the UNSC to the views and suggestions submitted by Member States to enhance the effectiveness of the UNSC as contained in the Secretary-General’s reports on the matter (A/8447 and Add.1 and A/9243) (resolution 3186 (XXVIII)).

At its twenty-sixth session, the UNGA, decided to seek the views of Member States on ways and means of enhancing the effectiveness of the UNSC in accordance with the principles and provisions of the Charter (resolutions 2864 (XXVI)) and reiterated that call the following year (resolution 2991 (XXVII)). Previously the UNGA had generally only taken note of the reports from the UNSC.