Last updated: October 10, 2026. This explainer covers how the UN Security Council’s voting rules work. It does not take a position on any country’s use of the veto. Procedures can be amended, so check the United Nations’ official pages for the latest.
Whenever the United Nations Security Council fails to pass a resolution on a war, a sanctions regime or a peacekeeping mission, the reason is often the same: one of five countries voted no. That power is the veto, and it shapes everything from how resolutions are drafted to who can become the next UN Secretary-General. This guide explains in plain language who holds the veto, exactly what it can and cannot block, how abstentions work, and what the General Assembly has done since 2022 to make vetoes more visible.
The Short Answer
- The Security Council has 15 members, and each has one vote.
- Five are permanent members: China, France, Russia, the United Kingdom and the United States.
- A substantive decision needs nine affirmative votes, including the concurring votes of all five permanent members. A negative vote by any one of them stops the decision. That is the veto.
- A permanent member that does not fully agree can abstain instead. If nine members still vote yes, the resolution passes.
- Since April 2022, a veto triggers a General Assembly debate within ten working days.
What the UN Charter and the Council Say
The rules come from Article 27 of the UN Charter. According to the Security Council’s own page on its voting system, decisions on procedural matters require an affirmative vote of nine members. Decisions on all other matters also require nine affirmative votes, but those votes must include the concurring votes of the permanent members. If a permanent member casts a negative vote, the page explains, the resolution is not approved.
| Type of decision | Votes needed | Can one permanent member block it? |
|---|---|---|
| Procedural matters | Nine of 15 | No |
| Substantive matters | Nine of 15, including the permanent members’ concurring votes | Yes, with a negative vote |
The Council’s page does not say how the Council decides whether a matter is procedural or substantive, which is itself a recurring source of dispute.
Veto vs Abstention: A Crucial Difference
People often assume that anything short of full agreement from a permanent member kills a resolution. It does not. The Council’s voting page notes that a permanent member that does not fully agree with a proposed resolution but does not want to block it can abstain, and the measure can then pass if it gets nine favourable votes. In practice, an abstention is a way of signaling disagreement without exercising the veto.
The Charter also includes a rule for certain disputes: under Chapter VI and Article 52(3), a party to a dispute is required to abstain from voting.
Why the Veto Exists
The veto was written into the Charter in 1945. The idea was that the Council could act effectively only if the great powers that held the main military and economic weight in the postwar order agreed to its decisions. The trade-off has been debated ever since. Supporters argue that it keeps major powers inside the system rather than outside it, while critics argue that it can paralyze the Council when civilians are at risk and that it reflects the power balance of 1945, not today. Reform proposals have circulated for years, and so far none has changed the basic rule.
What Happens After a Veto: The General Assembly Debate
In April 2022 the General Assembly adopted resolution 76/262, titled “Standing mandate for a General Assembly debate when a veto is cast in the Security Council.” It was adopted without a vote. According to the UN’s press summary of the decision, the resolution requires the President of the Assembly to convene a formal meeting of all 193 Member States within ten working days after one or more permanent members cast a veto, to debate the situation in which the veto was cast. There is one exception: the debate is not required if the Assembly is already meeting in an emergency special session on the same situation.
The resolution also invites the Security Council, under Article 24(3) of the Charter, to submit a special report on the veto to the Assembly at least 72 hours before the debate. The resolution does not give the Assembly power to overturn a veto. Its effect is transparency: a country that casts a veto can be asked to explain itself before the whole membership.
How the Veto Affects Who Leads the UN
The same rules shape the choice of Secretary-General. The Council recommends a candidate, and a recommendation is a substantive decision, so a candidate strongly opposed by any permanent member is unlikely to be recommended. That is why the race to replace António Guterres, whose term ends on December 31, 2026, depends so heavily on the preferences of Beijing, Moscow, Paris, London and Washington. For the current state of that race, see our report on who will be the next UN Secretary-General.
Veto Basics for Students and Model UN Delegates
- Count votes, not just countries. A draft can have 14 yes votes and still fail if one permanent member votes no.
- Distinguish abstain from veto. A draft with nine yes votes and a permanent member abstaining passes.
- Use correct procedural language. If you are drafting for a simulation, our guides to what PP, OP and bis mean in drafting and the complete list of preambulatory and operative clause phrases explain how resolutions are structured.
- Remember the 2022 reform. Mentioning the General Assembly debate shows you understand what happens after a veto.
Frequently Asked Questions
Which countries have veto power at the UN?
China, France, Russia, the United Kingdom and the United States, the five permanent members of the Security Council.
How many votes does a Security Council resolution need?
Nine out of 15. For substantive matters, those votes must include the concurring votes of the permanent members.
Does an abstention count as a veto?
No. A permanent member that abstains does not block the resolution, which can pass if it receives nine favourable votes.
Can the General Assembly override a veto?
No. Resolution 76/262 requires a General Assembly debate within ten working days of a veto, but it does not reverse the veto.
Can a permanent member veto procedural decisions?
No. Procedural decisions require nine affirmative votes, with no special rule for permanent members.
Sources: United Nations Security Council, “Voting System” (main.un.org/securitycouncil); United Nations General Assembly, resolution 76/262 (April 2022) and press release GA/12417; UN Charter, Article 27. Accessed October 10, 2026.
