A recent report by the Security Council Report indicates that, after months of political and diplomatic competition among members of the United Nations Security Council, China has been designated as the sole lead on Afghanistan-related matters within the Council. Observers view this development as a sign of Beijing’s growing influence in international affairs concerning Afghanistan.
According to the report, China assumed the role of “penholder” for the Afghanistan file in 2025. This position includes responsibility for drafting resolutions, managing negotiations, and coordinating documents related to Afghanistan in the Security Council.
The Security Council Report described this development as one of the most prominent examples of how geopolitical rivalries affect the internal functioning of the Security Council. It noted that, for the first time, a permanent member of the Council has taken full control of managing the Afghanistan file.
In previous years, this responsibility was mainly held by non-permanent members of the Security Council. However, following the end of Japan’s term on the Council in late 2024, a new competition emerged among China, Pakistan, and South Korea to assume the role.
According to the report, China initially proposed that the responsibility be shared among the three countries, but the United States opposed Beijing’s leadership. The disagreements became more evident in February 2025, when China and Pakistan submitted a draft resolution on extending the mandate of the United Nations Assistance Mission in Afghanistan (UNAMA). Just one day later, the United States and South Korea presented a separate draft to the Security Council.
This political dispute further highlighted divisions among Security Council members regarding how to engage with the Taliban and manage Afghanistan’s future. Nevertheless, after several rounds of negotiations, the two drafts were merged into a single text, which was ultimately adopted unanimously.
Following the adoption of the resolution, China remained the sole penholder for Afghanistan in the Security Council. Analysts believe this reflects Beijing’s efforts to expand its role in major decision-making processes within the United Nations.
The report also emphasizes that China has significantly expanded its political and economic relations with Afghanistan in recent years, particularly since the Taliban’s return to power in 2021. Beijing has consistently stressed regional cooperation and the importance of maintaining stability in the country.
Despite this development, the United States continues to retain part of its influence by chairing the Afghanistan Sanctions Committee under the UN’s 1988 sanctions regime.
The authors of the report conclude that competition over the Afghanistan file has now become part of the broader rivalry among global powers—particularly between China, Russia, and Western countries. This competition could have a direct impact on Afghanistan’s political future and on how the international community engages with the Taliban.
Writer:Salima Aryaei
