The Trump administration announced its withdrawal from the United Nations Educational, Scientific and Cultural Organization (UNESCO) again. Concerns are rising that an international organization meant to protect universal human values could transform into a 'historical battleground' where the interests of powerful countries clash.
On the 23rd (local time), the U.S. State Department stated that it would withdraw from UNESCO, citing that UNESCO promotes divisive social and cultural causes. This decision marks a re-withdrawal, two years after returning in 2023, having initially withdrawn during the first term in 2017.
The United States and UNESCO have had friction over money and political orientations for over a decade. When UNESCO admitted Palestine as a full member in 2011, the United States began to protest. At that time, the U.S. stopped its annual contribution of $80 million, which was approximately 110 billion won, according to federal law section 414. This law, enacted in the 1990s, completely prohibits funding to UN agencies that grant membership status to entities like the Palestine Liberation Organization (PLO), which lack a recognized state status. The unpaid contributions by the U.S. continued to accumulate, reaching up to $550 million, or about 760 billion won. Ultimately, UNESCO rescinded the United States' voting rights for the World Heritage designation.
The United States and UNESCO also clashed over the listing of heritage sites in Israel. Complaints from the U.S. mounted when sites such as the Islamic and Jewish holy sites in Jerusalem or the old city of Hebron were registered as Palestinian heritage. Especially in 2016, when UNESCO adopted a resolution to designate the Temple Mount only by its Muslim name (Al-Haram Al-Sharif), the U.S. erupted in anger. The Trump administration withdrew from UNESCO shortly after taking office in 2017.
With just over 200 years of history, the United States has not played a deserving role in UNESCO compared to the money it contributes. As of 2011, the U.S. contribution accounted for 22% of UNESCO's annual budget. Despite this massive contribution, the number of world heritage sites in the U.S. (around 20) was disproportionately low. Korea currently has a total of 15 and a contribution proportion of 3.3%. For the U.S., there was insufficient justification to remain in UNESCO, even at the cost of political controversy.
In 2023, the Biden administration decided to return to UNESCO. However, during the six years that the U.S. was absent, China quickly filled that void. By replacing the U.S., China emerged as the largest financial contributor to UNESCO in the 2020s, currently contributing $40 million, or about 55 billion won, annually. This places it second in the contribution rate at 15.4%. Considering that the first-place U.S. (22%) is not contributing and has withdrawn, China now exerts the greatest influence over UNESCO globally.
China has also occupied key positions within UNESCO. Former Chinese diplomat Qu Xing holds the position of Deputy Director-General, directly below the Secretary-General. Recently, China and UNESCO have been working together on projects such as the joint application for World Heritage status for the Silk Road. This project primarily supports the preservation and designation of cultural heritage located along the Belt and Road Initiative, a national project prioritized by President Xi Jinping that rekindles the land and maritime Silk Roads connecting China and Europe. The New York Times (NYT) pointed out the fact that the Chinese artificial intelligence corporation iFlytek has entered into a cooperation agreement with UNESCO, stating that 'an international organization that sets education and technology standards for all humanity is overly influenced by China's pressure.'
At the same time as expanding its influence, China is actively lobbying to claim the title of 'number one in world heritage.' As of 2025, the country with the most cultural heritage sites in the world is Italy (61 sites). China follows closely behind with 60.
This ranking is likely to change soon. To be listed as a UNESCO World Heritage site, a site must first be included in the 'Tentative List.' China has registered over 60 heritage sites on this list. This is double the number of sites in Italy's tentative list (32). This highlights the country's ambition to seize the top spot within a short period, even if it means overwhelming numbers.
Some of the heritage sites that China has placed on the Tentative List or is pursuing for registration are located in oppressed minority regions such as Tibet and the Xinjiang Uyghur Autonomous Region. The international community and local residents view this as a cultural project by the Chinese government to appropriate minority cultures and histories and to legitimize their control over these regions. For instance, China built Chinese-style pavilions around the Potala Palace, a symbol of Lhasa in Tibet, in violation of UNESCO regulations. According to the operational guidelines of the World Heritage Convention, the cultural heritage management authorities should not harm the authenticity and integrity of the heritage. The UNESCO World Heritage Committee acknowledged that the unique historicity and authenticity of the Potala Palace have been compromised by the Chinese authorities but failed to take any simple measures like issuing warnings or listing it in the List of World Heritage in Danger.
Japan, which has faced international criticism for historical distortion on several occasions, is also showing similar behavior to China within UNESCO. In 2015, Japan listed Hashima Island (Battleship Island) as a World Heritage site while promising to mention the 'forced labor of Koreans.' However, even nine years later, Japan has not fulfilled the commitments agreed upon at the time of registration. Additionally, Japan withheld payment of contributions when materials related to the Nanjing Massacre were registered as World Documentary Heritage, revealing its own shame.
Experts predict that the isolationist approach chosen by the United States will ultimately lead to the expansion of China's influence in international organizations, contributing to global instability. Former U.S. ambassador to UNESCO David Killion noted in the NYT that 'the U.S. is conceding the realm of soft power to the expansionist and authoritarian great power, China.'