Model UN Background Guide

Committee: SPECPOL (GA4)

Topic: UNRWA Mandate and Funding

Conference Year: 2026

1. Topic Background

The United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) was established in 1949 by General Assembly resolution 302 (IV) to provide humanitarian assistance, education, health care, and social services to Palestinian refugees displaced by the 1948 Arab-Israeli conflict. UNRWA operates primarily in Jordan, Lebanon, Syria, the West Bank, and the Gaza Strip, serving over 5 million registered refugees as of 2026.

UNRWA’s mandate is unique within the UN system as it specifically addresses the needs of Palestinian refugees, a population whose refugee status has been inherited by descendants, thus making the agency’s scope and operational scale distinct from other UN refugee agencies such as UNHCR. The agency’s mandate has been renewed periodically by the General Assembly, most recently in 2023, reflecting ongoing political and humanitarian concerns in the region.

The topic remains on the agenda due to several intersecting factors: persistent instability in the Middle East, ongoing Israeli-Palestinian tensions, and chronic underfunding that threatens UNRWA’s ability to deliver essential services. Since 2018, UNRWA has faced significant financial shortfalls following the withdrawal of major donors, including the United States, which historically contributed a large portion of the agency’s budget. The COVID-19 pandemic and regional conflicts have further exacerbated humanitarian needs.

As of 2026, debates have intensified over the future of UNRWA’s mandate, its operational model, and the political implications of its continued existence. Some member states question the agency’s role in perpetuating the refugee issue, while others emphasize its indispensable humanitarian function. The upcoming renewal of UNRWA’s mandate presents an opportunity for SPECPOL to address funding mechanisms, operational reforms, and the agency’s strategic direction amid a complex geopolitical environment.

2. Key Actors

• States

  • Jordan: Hosts the largest number of Palestinian refugees and is a strong advocate for UNRWA’s continued mandate and funding. Jordan emphasizes the agency’s role in regional stability and humanitarian relief.
  • Lebanon and Syria: Also host significant Palestinian refugee populations and rely heavily on UNRWA’s services amid fragile political and economic conditions. Both countries support sustained UNRWA operations.
  • Israel: While Israel cooperates with UNRWA on humanitarian grounds, it has expressed concerns about the agency’s mandate and calls for reforms to prevent what it sees as politicization of refugee issues.
  • United States: Historically the largest donor, the U.S. drastically reduced its funding in recent years, citing concerns over UNRWA’s operations and governance. Its position remains critical for the agency’s financial viability.
  • European Union and Member States (e.g., Germany, Sweden): Major donors advocating for continued support of UNRWA, emphasizing humanitarian needs and regional stability.
  • Arab League States (e.g., Saudi Arabia, Egypt): Support UNRWA but vary in their financial contributions and political stances. They often call for a political solution to the refugee issue alongside humanitarian assistance.

• International Organizations

  • UNRWA: The agency itself, responsible for program implementation and advocacy for sustained funding and mandate renewal.
  • UNHCR: While not directly responsible for Palestinian refugees, UNHCR sometimes coordinates with UNRWA on broader refugee issues and advocates for durable solutions.
  • The Quartet (UN, EU, US, Russia): Engaged in the broader peace process, their positions indirectly influence debates on UNRWA’s mandate.

3. Bloc Positions

• Pro-UNRWA Continuity Bloc
  Comprised mainly of Jordan, Lebanon, Syria, Arab League countries, and many EU members. This bloc emphasizes the humanitarian necessity of UNRWA’s services, the agency’s role in preventing further regional destabilization, and the importance of maintaining the refugee definition and mandate as is. They advocate for increased funding and reject attempts to alter or reduce the agency’s scope.

• Reform and Conditional Funding Bloc
  Led by the United States and some Western countries including Canada and Australia. This bloc supports the continuation of UNRWA but calls for increased transparency, accountability, and operational reforms to address concerns about politicization and efficiency. They often tie funding to progress on reform measures and political developments in the peace process.

• Skeptical or Critical Bloc
  Includes Israel and some of its close allies. This bloc questions the agency’s mandate, arguing that it perpetuates the refugee problem by maintaining a separate refugee category for Palestinians. They call for integrating Palestinian refugees under UNHCR or national frameworks and reducing UNRWA’s role to avoid what they see as politicization and potential incitement.

• Neutral or Limited Engagement Bloc
  Some developing countries and non-aligned states fall into this group, often supporting humanitarian assistance in principle but not engaging deeply with the political complexities. They may advocate for multilateral solutions but refrain from strong positions on mandate specifics or funding conditions.

4. Past UN Action

• GA Resolution 302 (IV) (1949): Established UNRWA.
• GA Resolution 2252 (ES-V) (1967): Renewed UNRWA’s mandate following the Six-Day War.
• GA Resolution 73/79 (2018): Called for continued support of UNRWA despite funding challenges.
• GA Resolution 77/85 (2023): Most recent renewal of UNRWA’s mandate, emphasizing the agency’s humanitarian role and urging member states to contribute financially.
• Various reports from the UN Secretary-General and the UNRWA Commissioner-General have regularly assessed the agency’s financial status, operational challenges, and regional security impacts.

5. Questions a Resolution Should Answer

1. How should the UNRWA mandate be defined or modified to address current humanitarian needs while considering political sensitivities?
2. What mechanisms can be established or improved to ensure sustainable, predictable funding for UNRWA?
3. How can transparency, accountability, and operational efficiency within UNRWA be enhanced without undermining its core mission?
4. What role should UNRWA play in coordination with other UN agencies, particularly UNHCR, regarding Palestinian refugees?
5. How can member states support UNRWA’s efforts to adapt to evolving regional challenges such as displacement, economic crises, and public health emergencies?
6. What steps can be taken to depoliticize humanitarian assistance provided by UNRWA while respecting the rights and needs of Palestinian refugees?
7. How can the international community balance short-term humanitarian relief with longer-term political solutions for Palestinian refugees?

6. Further Reading

• UN Documents: Official General Assembly resolutions on UNRWA, Secretary-General reports on the Middle East, and UNRWA’s annual operational and financial reports provide authoritative insight into mandate renewals, funding status, and operational challenges. These documents offer the legal and procedural framework for understanding the agency’s role and international commitments.

• Think-Tank Reports: Analyses from Middle East-focused policy institutes and international humanitarian organizations provide critical perspectives on UNRWA’s impact, funding dilemmas, and political context. These reports often explore reform proposals, donor dynamics, and the broader implications of UNRWA’s work on regional stability.

• News Outlets: Coverage from reputable international and regional media sources offers up-to-date reporting on funding developments, political debates, and crises affecting Palestinian refugees and UNRWA’s operations. These sources provide context on evolving geopolitical positions and public opinion influencing the agency’s future.

This background guide aims to equip delegates with a comprehensive understanding of the complexities surrounding UNRWA’s mandate and funding as they prepare to debate and draft resolutions in SPECPOL 2026.