United Nations' Vision and Framework for Global AI Governance
The UN's Vision for AI Governance
The United Nations recognizes that the world is experiencing a fundamental technological shift due to the rapid digitalization and deployment of artificial intelligence (AI) technologies. AI holds significant potential to support inclusivity, reduce inequalities, bolster UN operations, and help achieve the Sustainable Development Goals (SDGs). However, the UN emphasizes that harnessing the positive impacts of AI requires careful attention to ethical considerations, including safeguarding data privacy, mitigating biases, and ensuring transparent decision-making processes. In response to these challenges and opportunities, the United Nations has developed several initiatives, including the Secretary-General's High-level Advisory Body on Artificial Intelligence, which released its final report titled "Governing AI for Humanity" in September 2024.
UN's Framework for Global AI Governance
The UN's approach to AI governance is based on the understanding that AI is transforming our world and offers tremendous potential for good while presenting significant risks if left ungoverned. In its comprehensive 100-page report, the UN High-Level Advisory Body on AI outlines a blueprint for addressing AI-related risks and sharing its transformative potential globally. The report proposes that the UN lay the foundations for the first globally inclusive and distributed architecture for AI governance based on international cooperation. Central to this framework is a set of seven recommendations to address gaps in current AI governance arrangements and a call on all governments and stakeholders to work together in governing AI to foster development and protection of all human rights.
UN's Framework Components
The UN proposes several key mechanisms for global AI governance. These include an international scientific panel on AI, modeled after the Intergovernmental Panel on Climate Change, to compile and analyze reliable information about AI's capabilities and risks. Additionally, the UN recommends establishing a global policy dialogue on AI governance to foster intergovernmental and multi-stakeholder dialogue on best practices. A crucial component of the framework is the creation of an AI standards exchange to develop common definitions and evaluation standards for AI systems. To support equitable AI development, the UN proposes a capacity development network to provide researchers and entrepreneurs with expertise and resources. The UN also recommends establishing a global fund for AI to collect donations from public and private groups to address the AI divide between nations.
Rationale for Global AI Governance
The UN recognizes an irrefutable need for global regulation of AI. The High-Level Advisory Body on AI explicitly states that AI development and use "cannot be left to the whims of markets alone". This position stems from the acknowledgment that while AI offers immense benefits, it also carries significant risks that require coordinated international action. One compelling reason for global governance is the current fragmentation of AI regulatory efforts. The UN report reveals that only seven of the 193 UN member nations participate in seven prominent AI governance initiatives, while 118 countries, primarily in the global South, are missing entirely from these conversations.
The Technology's Global Nature
The UN emphasizes that AI's reliance on globally sourced data, materials, and computing power makes international cooperation essential. AI technology transcends national borders, creating a need for coordination to prevent a fragmented approach that could lead to inequality between nations and exacerbate existing power imbalances. As the only forum with universal representation, the United Nations is uniquely positioned to facilitate a conversation about AI governance where all countries can participate. This inclusive approach is essential for developing effective governance structures that serve the global public good.
Threats Associated with Unregulated AI
The UN has identified several significant threats associated with unregulated AI development and deployment. First, there are concerns about potential catastrophic and existential risks that threaten international peace, security, and humanity as a whole. AI left ungoverned could lead to its benefits being limited to a handful of countries, companies, and individuals. More powerful systems than exist today could upend labor markets and workforces while creating autonomous weapons that pose risks to peace and security.
Security and Societal Concerns
Unchecked AI could destabilize democratic systems by spreading disinformation, fueling hate speech, and distorting public opinion through deepfakes. The integration of AI into autonomous weapons systems, commonly called "killer robots," represents a significant danger. The UN Security Council has expressed concern about AI's potential to intensify conflict through misinformation and the development of autonomous weapons systems. There are additional concerns about AI being used for malicious purposes, such as constructing biological weapons or engaging in malicious cyber operations. The UN has noted that AI can amplify bias, reinforce discrimination, and enable authoritarian surveillance.
Economic and Social Risks
The UN recognizes that AI presents risks related to economic inequality and job displacement. Without proper governance, AI could exacerbate existing digital divides between wealthy industrialized nations and developing countries. There are also risks associated with data privacy and security, particularly concerning sensitive personal information such as health, biometrics, or financial data. Additionally, AI systems could pose environmental challenges due to their high energy consumption for large-scale data processing.
Opportunities Presented by Responsible AI
Despite the risks, the UN emphasizes that AI holds transformative potential for positive impacts across various domains. If utilized properly, AI can increase productivity, eliminate human bias and error, and aid in achieving the UN's global sustainable development goals. AI is already optimizing energy use, improving medical diagnostics, monitoring biodiversity, and expanding educational opportunities. The technology can potentially accelerate progress toward achieving all 17 SDGs in economic, social, and environmental dimensions.
Economic and Development Opportunities
AI presents significant economic opportunities, with projections suggesting it could contribute substantially to global economic growth through increased productivity and innovation. The technology can help bridge socioeconomic gaps by improving access to services for marginalized communities. AI can also support sustainable development by enhancing agricultural practices, optimizing resource management, and improving healthcare delivery. Used well, AI could significantly accelerate progress toward the SDGs, particularly in developing countries where technological leapfrogging is possible.
UN Agencies Involved in AI Governance
Multiple UN agencies are actively engaged in AI governance efforts, each bringing unique perspectives and expertise to this complex issue. The Inter-Agency Working Group on Artificial Intelligence (IAWG-AI), established by the High-level Committee on Programmes (HLCP) in October 2020, brings together UN system expertise on AI and is co-led by UNESCO and ITU. The Chief Executives Board for Coordination (CEB) and its subsidiary committees, including the High-level Committee on Programmes (HLCP) and the High-level Committee on Management (HLCM), have been examining frontier issues including AI since 2017.
Key UN Bodies in AI Governance
The UN Secretary-General's High-level Advisory Body on Artificial Intelligence, comprising 39 prominent AI leaders from 33 countries, serves as the primary advisory group on global AI governance. UNESCO plays a central role in developing ethical frameworks for AI, having led the preparation of a Recommendation on the Ethics of AI, which was adopted by its General Conference in November 2021. The International Telecommunication Union (ITU) collaborates with UNESCO to lead many AI governance initiatives, focusing particularly on technical standards and connectivity. Other important contributors include the United Nations Development Programme (UNDP), which works on AI for sustainable development; the World Health Organization (WHO), which explores AI applications in healthcare; and the United Nations Environment Programme (UNEP), which addresses AI's role in environmental sustainability.
UN Agencies' Role in AI Governance
The UN system is committed to taking a proactive, ethical, human rights-based approach to adopting AI internally in its work. The UN has established a Task Force under the High-level Committee on Management (HLCM) with objectives to develop a system-wide normative and operational framework on the use of AI in the UN system and to identify mechanisms for pooling technical capacity and knowledge sharing on AI. The UN agencies bring diverse expertise to AI governance, with organizations like the International Labour Organization (ILO) offering insights on AI's impact on labor, and the World Intellectual Property Organization (WIPO) contributing data on AI innovation and intellectual property-related policies.
AI Governance and the Sustainable Development Goals
The UN emphasizes that AI can play a pivotal role in achieving the 17 Sustainable Development Goals (SDGs). The "Governing AI for Humanity" report underscores AI's potential to accelerate progress toward achieving all 17 SDGs in economic, social, and environmental dimensions. AI can support key SDGs such as poverty reduction (SDG 1), quality education (SDG 4), decent work and economic growth (SDG 8), industry, innovation and infrastructure (SDG 9), and climate action (SDG 13).
AI's Contribution to Specific SDGs
In education (SDG 4), AI can enhance learning experiences through personalized approaches and expanded access. For healthcare (SDG 3), AI technologies contribute to improved diagnostics, disease monitoring, and healthcare delivery. Regarding climate action (SDG 13), AI can optimize energy use, predict climate impacts, and enhance resource management for environmental sustainability. AI also supports economic development (SDGs 8 and 9) by fostering innovation, improving industrial processes, and creating new economic opportunities.
Ensuring AI Benefits All
The UN stresses the importance of ensuring that AI technologies benefit all countries and communities, particularly those in developing regions. The proposed global fund for AI and capacity development network aim to bridge the technology gap and empower underserved regions. By promoting equitable access to AI technologies, the UN seeks to reduce digital divides between wealthy industrialized nations and developing countries, as well as within countries. This approach aligns with the fundamental SDG principle of leaving no one behind, as AI governance should reinforce the 2030 Agenda and ensure inclusive benefits.
Improving Global Decision-Making through AI Governance
The UN's AI governance efforts have significant potential to enhance global decision-making processes. By establishing a globally inclusive framework for AI governance, the UN aims to foster more effective international cooperation and coordination on complex global challenges. The proposed international scientific panel on AI would provide evidence-based insights to inform policy decisions, improving the quality of governance at all levels. Similarly, the global policy dialogue on AI governance would facilitate the sharing of best practices and promote interoperability of regulations across countries.
Enhanced Multilateral Cooperation
The UN provides a unique platform for multilateral dialogue and collaboration on AI governance. This inclusivity encourages the exchange of best practices and experiences related to AI applications, fostering cooperation among countries with diverse regulatory and ethical perspectives. By facilitating discussions on AI governance, the UN can influence decision-making at the global level, promoting consensus on shared norms and standards. The establishment of an AI standards exchange would further harmonize international standards across jurisdictions, making it easier for countries to work together effectively on issues such as privacy, security, and equity in technology.
Distributed and Inclusive Governance Model
The UN promotes a governance model for AI that is universal, networked, and adaptively collaborative. This approach ensures that diverse perspectives are considered in AI policy development and implementation. By engaging not just governments but also civil society, the private sector, and academia, the UN enhances collective decision-making capacities and encourages more comprehensive and better-informed governance outcomes. This inclusive approach is crucial for obtaining a holistic view of AI's impact and for shaping regulations that address a broad spectrum of interests and concerns.
Forward-Looking Recommendations
To advance global AI governance, the UN recommends establishing an AI office within the Secretariat to oversee governance initiatives and advise the Secretary-General on AI-related matters. The UN also emphasizes the need for ongoing monitoring and evaluation of AI governance efforts to track progress, identify gaps, and adjust strategies as needed. By developing a comprehensive framework for AI governance that reflects diverse perspectives and is adaptable to evolving technologies, the UN aims to ensure that AI serves humanity's best interests rather than becoming a source of division and conflict.
Conclusion: The Path Forward
The UN's approach to AI governance represents a significant effort to harness the benefits of AI while addressing its risks. The emphasis on inclusivity, ethics, and human rights provides a strong foundation for developing effective governance frameworks. By fostering international cooperation and establishing mechanisms for coordinated action, the UN aims to ensure that AI technologies contribute positively to sustainable development and global well-being. As Secretary-General António Guterres stated, "If we are to harness the benefits of artificial intelligence and address the risks, we must all work together - governments, industry, academia and civil society - to develop the frameworks and systems that enable responsible innovation".
