China Expands Influence at U.N. Cultural Agency as U.S. Withdraws Under Trump

In a significant shift in international cultural diplomacy, China has rapidly expanded its influence within the United Nations Educational, Scientific and Cultural Organization (UNESCO) at a time when the United States, under President Donald Trump, has formally withdrawn from the agency. The divergent strategies of the world’s two largest economies—China’s assertive participation versus America’s retreat—highlight a broader global realignment and a struggle for soft power in arenas beyond military or economic dominance. China's rise within UNESCO is not accidental.

Over the last decade, and especially in recent years, China has methodically increased its presence and influence across various sectors of the organization. It has contributed substantial financial resources, strategically placed diplomats in key leadership roles, and leveraged its Belt and Road Initiative to align cultural diplomacy with economic expansion. Beijing’s efforts have culminated in a stronger voice in debates over World Heritage Site designations, education policies, and global communication standards.

According to UNESCO insiders, Chinese officials have become increasingly visible and active in working groups and policy discussions, often offering well-organized proposals backed by financial commitments. In stark contrast, the Trump administration's decision to formally leave UNESCO in 2020, citing perceived anti-Israel bias and concerns over mismanagement, has left a vacuum in leadership that China has been quick to fill. The U.S.

had previously suspended its dues to the organization in 2011, a move initially triggered by the agency’s decision to admit Palestine as a full member. That financial freeze placed the United States in arrears and gradually eroded its voting power and leadership influence. Critics of the Trump administration’s withdrawal have argued that the decision undermines America’s ability to shape global educational and cultural standards, essentially ceding the ground to nations with divergent values and strategic goals.

U.S. disengagement, they contend, creates opportunities for authoritarian governments to redefine what qualifies as world heritage and to use culture as a tool for geopolitical messaging. At the core of China’s cultural diplomacy is its effort to redefine international norms and to secure recognition for its historical narratives, including sensitive issues such as territorial disputes and minority representation.

For instance, several recent successful bids by China to secure UNESCO World Heritage status for sites in Tibet and the Xinjiang region have drawn criticism from human rights groups and some Western governments. These critics argue that such designations are being used to whitewash allegations of cultural erasure and forced assimilation. Nonetheless, with fewer Western voices at the table, such efforts have faced less resistance within UNESCO’s governing bodies.

Chinese officials have defended their initiatives, insisting that their involvement in UNESCO is consistent with the organization’s mission to promote cultural diversity and mutual understanding. In speeches and public statements, Chinese diplomats have emphasized their commitment to preserving global heritage and fostering cross-cultural exchange. They have also positioned China as a responsible leader in international cooperation, contrasting their approach with what they describe as the “unilateralism and isolationism” of the United States.

The Trump administration, for its part, has maintained that its exit from UNESCO is part of a broader strategy to prioritize American sovereignty and to resist international institutions that it believes do not serve U.S. interests. In statements issued by the State Department at the time of withdrawal, U.S.

officials underscored their view that UNESCO had become politicized and ineffective, and that American taxpayers should not be asked to fund an agency they believe consistently acts against U.S. allies. However, many foreign policy experts and former diplomats have warned that this retreat undermines long-term American interests by allowing rival powers to shape international discourse without counterbalance.

The concern is not merely symbolic. UNESCO plays a significant role in setting educational guidelines, promoting media development, advancing scientific collaboration, and managing over 1,100 World Heritage Sites. These areas directly influence how history is taught, how journalism is supported, and how communities manage their cultural resources—all of which can have lasting political and social ramifications.

China’s proactive engagement with UNESCO has included a notable increase in voluntary contributions and the hosting of key conferences and summits. It has also established several UNESCO Chairs at Chinese universities, designed to foster academic exchange and policy dialogue on topics aligned with China’s national interests. In some cases, Chinese state media have used UNESCO partnerships as proof of global recognition for China's contributions to culture and education, further enhancing its soft power.

At the leadership level, China has also successfully positioned several nationals in prominent roles within UNESCO’s secretariat and technical committees. These appointments give China greater leverage in shaping policy outcomes and have been instrumental in steering discussions on topics such as digital governance, heritage preservation, and cultural diversity. China’s strategic use of soft power stands in sharp contrast to the American model of cultural influence, which historically relied on support for academic exchanges, the arts, and independent media development.

As Washington steps back, Beijing’s model—state-directed, resource-heavy, and tightly coordinated—becomes more dominant, especially in developing nations where infrastructure and financial aid from China often come bundled with cultural cooperation. This alignment of economic and cultural diplomacy has made China an attractive partner for countries across Africa, Asia, and Latin America. Through mechanisms like the Belt and Road Initiative, China has built not only roads and railways but also museums, schools, and media centers—all frequently developed in partnership with or under the auspices of UNESCO.

These investments, while often welcomed locally, also embed narratives and priorities that align with Chinese state ideology. Some observers within the United Nations system worry that this growing influence could compromise the perceived neutrality of UNESCO and other international bodies. If a single nation exerts disproportionate influence over which sites and traditions are recognized and preserved, they argue, the agency’s global legitimacy could suffer.

Despite these concerns, many UNESCO member states have welcomed China’s engagement, particularly in light of budgetary constraints that have plagued the organization in recent years. With the United States and several other countries falling behind on dues or reducing their contributions, China's willingness to step in with funding has filled critical gaps. This financial support has allowed key programs to continue and has positioned China as a practical partner in advancing UNESCO’s mission.

For career diplomats and cultural scholars alike, the evolving dynamic at UNESCO serves as a case study in the shifting balance of global power. While the United States has traditionally championed liberal values such as freedom of expression and pluralism within U.N. agencies, China’s rise signals a more state-centric, controlled vision of cultural cooperation.

Whether this leads to greater global harmony or entrenches ideological divides remains an open question. What is clear, however, is that UNESCO has become a new arena in the broader geopolitical competition between East and West. As one fades from view, the other steps into the spotlight, reshaping not only the agency’s agenda but also the broader cultural currents of the 21st century.

With the Biden administration indicating some interest in reengaging with multilateral institutions, the future of U.S. involvement in UNESCO remains uncertain. Reentry would require overcoming budget arrears, rebuilding diplomatic relationships, and articulating a clear vision of American values in cultural diplomacy.

Until then, China’s momentum at the U.N. cultural agency continues largely unchallenged, marking a new chapter in global influence—one defined not by force, but by the subtle yet powerful tools of cultural heritage, education, and international recognition..