Global Policy Forum

By Barbara Crossette

United Nations - After years of trying to hold the 15-member Security Council to what it considers a manageable size, the United States is prepared to drop its insistence that the limit should be 20 or 21 seats in any expansion, Richard C. Holbrooke, the American ambassador to the United Nations, told a General Assembly working group today.

Mr. Holbrooke, who did not suggest an upper number, is facing an uphill battle to reduce American dues to the organization. And the issue of Security Council size is important for dozens of new members, whose ambassadors here contend that the council no longer represents the world.

The five permanent members - Britain, China, France, Russia and the United States - have held those positions since 1945, when the United Nations had 51 members. The 10 rotating seats are shared by 183 other countries, some of which are unlikely ever to have a chance at membership. The rotating seats are held for two years, with five new members elected each year to maintain overlap.

The council, something of a United Nations cabinet of countries, is the only body that can call for enforcement of its decisions by military means, if necessary.

Several years of sometimes rancorous debate in an open-ended working group - envoys call it the "never-ending working group" - have failed to bring any voluntary changes in membership. Europe, for example, can also hold one or two rotating seats in addition to its three permanent ones, if Russia is counted. And many nations say the time has come to discuss one or two permanent seats for the European Union, to be apportioned as they choose. France and Britain are resolutely opposed.

The situation is further complicated by German and Italian demands for permanent seats, which carry veto powers. Japan is also campaigning for a permanent place, citing its high level of contributions and the need for a democratic free-market Asian voice among the most powerful nations.

Most delegations say the council is out of date in not giving enough seats - and no permanent seats - to the developing countries that form a substantial numerical majority in the General Assembly. Those nations themselves are a long way from deciding which would hold seats if the number is increased.

India desperately wants one. But Indonesia and maybe even Korea may also still be in the running from Asia. Africa has an abundance of candidates, among them Egypt, Nigeria and South Africa. In Latin America, Brazil and Mexico, and possibly Argentina or even Chile, would be among the competitors.

When Bill Richardson, now energy secretary, was the ambassador here, he suggested an additional five seats, for Germany, Japan and three developing nations. That would put the membership at 20. Now members are proposing a body as large as 28 members, nearly double its present size.