| Global Policy Forum UN Monitor #44 |
March 2026 |
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The aim of the UN80 Initiative as expressed by Under Secretary-General Guy Ryder is to address “the totality of our circumstances – our political circumstances, our financial circumstances, but also circumstances in which the effectiveness of multilateralism is up for scrutiny” and “to bring the United Nations out of this process in these rather turbulent times, in better shape”. Member States have expressed that a balance must be struck that leads to substantive change within the UN organization without undermining the mission and normative standards of the UN and respecting the decision-making role of Member States. Many recognise the enormous challenge this poses in light of the UN’s chronic liquidity crisis fostered by non-payment and late payment of dues by major powers, as evidenced by the revised UN budget for 2026 adopted at the eleventh hour of 2025 that included a cut of 2900 UN staff positions. |
Focus areas:
*** For UN resources, see UN80 Initiative website |
One such proposal is the merger of UN Women and UNFPA. This lively topic garnered much attention from Member States during the Executive Board meetings (the governing and oversight mechanisms of UN development funds and programmes) in January and February 2026. Meanwhile, civil society organizations and women’s networks expressed strong opposition at the 70th Commission on the Status of Women in March.
Other structural reform proposals, including a merger of UNDP and UNOPS, are outlined in Workstream 3 of UN80 Initiative. The multiple clusters will be developed further with input from the UN Secretariat and subject to on-going Member State deliberations.
This GPF briefing compiled by Noah Johnson and Julie Kim supplements on-going monitoring and reporting by drilling down on Member State positions in statements from Executive Board of UNDP, UNFPA and UNOPS (1st Meeting) and UN Women Executive Board (First Regular Session 2026).
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UN Women and UN Population Fund (UNFPA) – to merge or not to merge
SPAIN:
“[W]here we are discussing UN80 and potential merger of UNFPA and UN Women, we are aware that it is important to improve cooperation and coordination between development systems, but we should also preserve the unique mandate of UN Women, and they have normative leadership in coordination work on gender equality, and UNFPA also has a specific mandate for sexual reproductive rights. We are also concerned by the risk of diluting mandates and budget cuts which could hinder the capacity of the two entities to have tangible results on the ground in a complex geopolitical situation where we are seeing fallback in rights. Therefore, we need to rigorously examine the different options, including the possibility of strengthening coordination and shared services without necessarily having a structural merger.”
URUGUAY:
“The Secretariat has ensured us that the idea is not to dilute or erode their respective mandates, but we would like to have greater details on their scope, and we would like to know whether the report that was mandated would limit itself to examining opportunities and challenges of a possible merger, or whether it will also include a comparison with other alternatives to strengthen the effectiveness and efficiency of both entities without necessarily carrying out a merger. In terms of the proposal to merge UN Women and UNFPA, we would like to warn that any reform of this nature will require negotiating resolution in the GA. The risk of reopening or weakening existing mandates, especially in the current political context, is real and should not be underestimated. We are worried that this process could undermine advances that we would like to protect, especially when it comes to our work on the ground. It could also weaken or make invisible the fundamental role that both agencies play. In that sense, we would like to stress the importance of having greater information available as well as independent evaluations that include the voice of specialists from civil society with a broad experience working on the ground alongside UN Women and UNFPA. They can provide valuable and evidence-based information so that states can make informed decisions.”
SWEDEN:
“We are united in wanting a UN that delivers tangible results for all women and girls. Sweden’s commitment to gender equality and to effective reform is firm. The question before us is not whether to improve the system, but how to do so without weakening what already works. Sweden approaches the proposal to explore a potential merger between UN Women and UNFPA with an open mind. At the same time, we recall that these entities were created with distinct and complementary mandates, both essential in different ways.”
UGANDA:
“These achievements have been hard-won, often under complex and resource-constrained circumstances. Africa is deeply concerned that certain proposals could risk undermining or reversing the progress already made in our countries and region. In this regard, the Africa Group requests greater clarity on the scope, implication, and anticipated outcomes of the proposed reforms. We further encourage the presentation of a range of options beyond structural measures, including that decisions are informed by evidence-based assessments and inclusive consultations with member states. The group also underscores the importance of equitable geographical representation and staffing, effective risk mitigation measures, and the safeguarding of institutional knowledge to protect and consolidate existing gains.”
UNITED KINGDOM:
“We want to see UN Country Teams that work more cohesively under a strengthened RC. Gender equality must be embedded throughout planning, coordination, and decision-making, and not treated as an add-on. We recognize UN Women’s contributions to reform discussions on regional arrangements and country configurations and encourage UN Women to continue shaping these reforms, working closely with other entities to identify opportunities for interagency collaboration, including through common back offices, co-location, and sharing of expertise. Improved coordination and collaboration could and should reduce duplication, improve gender mainstreaming, and deliver better service for women and girls.”
LESOTHO:
“In light of ongoing discussions regarding the proposed merger of UN Women and UNFPA, Lesotho underscores the importance of a transparent, member-driven process that carefully assesses the implications for mandate delivery, operational effectiveness, and support to countries. Any institutional reform that must strengthen the global commitment to gender equality, women’s empowerment, sexual and reproductive health, and rights. Lesotho therefore calls for inclusive consultations, robust analysis, and assurances that the gains made over decades of dedicated work will be preserved and enhanced.”
FRANCE:
“When it comes to UNFPA and UN Women, France will pay close attention so that mandates on parity and protecting the rights of girls and women, I’m specifically speaking of sexual health and reproductive rights, are fully protected.”
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Member State priorities and expectations for structural reform
GERMANY:
“Against this backdrop, we regret that no detailed and structured information on relevant discussions under Workstreams 3 was made available for comment within the agreed timelines to support substantive discussion under this agenda item. This includes the assessments of potential mergers, other agency-related work packages, as well as relevant decision points. And moving forward, we call therefore for a more inclusive, timely, and transparent consultation process with both Executive Boards and with civil society. A merger dividend needs to be grounded on comprehensive, evidence-based assessments of potential implications for mandates, governance structures, funding, staffing, and operational delivery. We also request the task team to examine alternatives to the merger proposals, building upon already ongoing reforms and measures. It is key that the strength and integrity of mandates, particularly those related to gender, SRHR, and demographic change, are fully preserved.”
PHILIPPINES:
“It is important for the Board to closely analyze the impacts of various suggested reforms, especially in the UN80’s Workstream 3 on the UN Development System. And this is also important as UN Women moves forward with a strategic plan and supporting the 2030 Agenda. An issue of particular importance for the Philippines is the Women, Peace, and Security (WPS) Agenda, and we hosted an international conference in Manila in 2024 to commemorate the 25th anniversary of the UN Security Council Resolution 1325. In this regard, we would like to inquire with the Executive Director on UN Women’s works and – work and plans on the WPS Agenda, as we are particularly interested in carrying this particular issue forward in all the relevant UN fora.”
BRAZIL:
“We expect those recommendations to be provided with sufficient quantitative and qualitative information. Options and their respective rationales, as well as potential benefits and risks, must be clearly presented. Member states will also need appropriate time to reflect and consult. These process-related aspects are key in complex institutional change, as we know. In this context, we look forward to the formal assessments to be submitted by the boards of UNFPA and UN Women, and of UNDP and UNOPS.
In the first case, we are ready to fully and seriously consider the potential benefits of consolidation, which we will have to better understand. At the same time, Brazil, as many others is, concerned with risks [of] dilution, or even the practical elimination of mandates and the erosion of donor confidence. I have no doubt that the Secretary-General is as committed as the Membership to avoiding such risks. Regarding the possible merger of UNDP and UNOPS, we need to better understand the problems to be addressed, the efficiency gains to be achieved, and how consolidation will help enhance delivery.”
SWITZERLAND:
“Reforms must be launched on the basis of solid analysis, reducing duplication and bureaucracy, fostering shared operational platforms and also strengthening synergies, particularly between humanitarian aid and development….
First, we recall the importance of transparent sharing of information on the different work packages and issues of reform. This information is crucial to allow the Executive Boards to carry out their governance and supervision and oversight roles adequately. Current budgetary pressures must not define the future of the UN and it should not fragment the system through hasty relocations. Efficiency gains must serve as a broader purpose to enable the UN system to truly act as one UN and ensure its normative role. Finally, the effectiveness of the reform of UN80 will be measured at the country level. For this reason, Switzerland will continue to support an integrated system of resident coordinators with the necessary resources and clear delegated authority.”
TUNISIA:
”Our group also recalls that the development pillar remains the backbone of the United Nations engagement with our countries, yet it continues to face persistent funding constraints. Reform efforts must, therefore, safeguard and strengthen development mandates. Efficiency gains should not translate into reduced presence or weakened capacity, but rather be reinvested to enhance impact, implementation, and delivery at country level. Addressing the long-standing gap between mandates and resources remains an urgent priority.
The African Group takes note of monitoring tools and dashboards presented under the UN80 Initiative. While such instruments can support accountability, they must remain means to an end. Progress should be assessed against outcomes that matter most to Member States, particularly developing countries, and that advance the 2030 Agenda and national development strategies.”
FRANCE:
“[B]ringing together UNDP and UNOPS can open the way toward interesting synergies between planning and implementation if we preserve operational capacities, expertise, and the added value of these two agencies.”
NORWAY:
“We must all contribute to enabling the UN to deliver better impact together on the ground. ‘Delivering as One’ has been a consistent message from Norway. We must assess the proposed structural changes from this perspective, and we must look at how they can strengthen the Resident Coordinator system and Country Team effectiveness.
We must prepare the ground for the proposed mergers of UNDP and UNOPS and UNFPA and UN Women, which are constructive proposals. We regret that the assessments cannot be presented in time for thorough consideration by member states well ahead of the board meeting, for the board to have an informed discussion. Transparency, accountability and inclusion are crucial to the success of this process.”
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