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Thimphu

Equating the Unequal

The Bhutan-China boundary talks are a microcosm of the larger geopolitical chessboard in the Himalayas.

By Gulnaz Nawaz | December 2023


The recent Bhutan-China boundary talks have emerged as a critical juncture in the complex geopolitical landscape of the Himalayas. Held in Beijing, these discussions marked the 25th round of negotiations between the two nations and have resulted in the signing of a Cooperation Agreement outlining the “Responsibilities and Functions of the Joint Technical Team (JTT) on the Delimitation and Demarcation of the Bhutan-China Boundary.” Beyond the diplomatic nuances, the talks hold profound significance for the region, with historical context, geopolitical implications, and the strategic interplay involving India shaping the dynamics of this intricate dialogue.

The roots of the Bhutan-China border dispute extend back to 1984, with 24 rounds of talks held until 2016. In 2017, Indian and Chinese soldiers engaged in a military standoff at the tense tri-junction of the claimed Doklam Plateau, which is located in Bhutan, China, and India. Both China and India claimed ownership over the plateau, putting Bhutan in the middle of the conflict. The new negotiations after a seven-year break illustrate the historical tensions and the complicated dance between tiny states and large powers in the Himalayan region. The geopolitical implications of the border negotiations between Bhutan and China are significant. Bhutan must maintain a delicate balance between its two major neighbors—India and China—due to the country’s traditional stance of neutrality and nonalignment. Longtime ally India completely supports Bhutan’s claim to the Doklam Plateau, which Bhutan also claims as its own. China’s territorial claims in the region further complicate the diplomatic debate.

The outcome of the Doklam Plateau dispute will affect regional power dynamics. The plateau’s closeness to the Siliguri Corridor, a small land route linking mainland India with its northeastern states, highlights China’s strategic interest in establishing control over the area. China’s military might and access to the Indian subcontinent would be improved if this dispute is settled in its favor, which might alter the regional power structure.

The border negotiations between Bhutan and China are not happening in a vacuum but rather represent a piece in a larger geopolitical chessboard in the Himalayas. Large nations like China and India are jostling for position in the area, leading to heightened geopolitical rivalry. Adding Bhutan to China’s ambitious Belt and Road Initiative (BRI) infrastructure projects demonstrates China’s continued commitment to the region.

The negotiations’ conclusion may pave the way for settling similar territorial issues in the area. Drawing similarities with the South China Sea conflict, where many claimants oppose China’s vast territorial claims, the international world keenly observes the Bhutan-China negotiations. The outcome of a single conflict might throw off the delicate balance of power in the Himalayan region.

These boundary talks operate within a 3-step Roadmap initiated in 2021. This roadmap, comprising agreeing to the border “on the table,” visiting the sites on the ground, and formally demarcating the boundary, reflects a commitment to a comprehensive and diplomatic resolution. The recent signing of the Cooperation Agreement on the responsibilities and functions of the Joint Technical Team (JTT) marks a tangible step forward, building on the positive momentum since the last talks in 2016.

Bhutan’s Prime Minister, Dr. Lotay Tshering, noted in an interview that progress is being made, hinting at the possibility of completing the roadmap even before the Bhutanese elections 2024. Establishing the JTT, tasked with delimitating and demarcating the Bhutan-China boundary, signifies a commitment to operationalizing the roadmap. As the talks progress, Bhutan’s future foreign policy choices and role in regional affairs hang in the balance.


The border talks with Bhutan are not an isolated event for China but part of a broader regional strategy. As tensions with India persist, China seeks to solidify its position in the Himalayas. The Doklam Plateau, with its tactical significance, becomes a pawn in this strategic game. Despite the absence of formal diplomatic ties with Bhutan, China’s diplomatic maneuvers reflect a keen interest in securing favorable outcomes in a region critical to military and economic considerations.

Regarding the border dispute between Bhutan and China, China is taking measures outside the norm of foreign diplomacy. Villages, highways, administrative buildings, and military outposts have reportedly been built within Bhutanese boundaries, a warning sign of China’s covert occupation. According to Robert Barnett’s research, this massive building push is about expanding the country’s borders and attempting to alter the foundations of Bhutan’s Buddhist culture, particularly in places like the Beyul Valley.

The negotiations’ conclusion may pave the way for settling similar territorial issues in the area.

The fact that China is prepared to use innovative tactics like adding the Sakteng claim only increases the difficulty of the discussions. Bhutan has an enormous challenge in safeguarding its independence and cultural traditions as long-standing animosities and competing territorial claims complicate border discussions. The Doklam Plateau, at the center of the Bhutan-China border dispute, is a trilateral concern involving Bhutan, India, and China. The clash between Chinese and Indian troops in 2017 highlighted the vulnerability of the region and its potential impact on both nations. The strategic significance of Doklam extends beyond territorial disputes, influencing India’s access to its northeastern areas and China’s concerns about a pincer movement from Bhutan and India.

The urgency displayed by China in the border talks with Bhutan is interconnected with the broader Sino-Indian border conflict and, specifically, the status of Arunachal Pradesh. With Doklam under Chinese control, China could exert additional pressure on India, potentially severing India’s connection to its eastern border. The outcome of the negotiations will reverberate across the India-China border and carry implications for broader geopolitical tensions.

In conclusion, the Bhutan-China boundary talks go beyond the cartographic delineation of borders; they represent a complex interplay of historical grievances, geopolitical maneuvering, and strategic interests. The outcome will shape the future landscape of the Himalayan region, influencing regional power dynamics, security considerations, and the delicate balance between neighboring nations. As Bhutan treads carefully between its powerful neighbors, India and China, the international community watches the development keenly. The talks, operating within the framework of the 3-Step Roadmap, offer a glimmer of hope for a diplomatic resolution. However, the silent occupation of disputed territories, creative diplomatic tactics, and the broader strategic context complicates the negotiations.

The Bhutan-China boundary talks are a microcosm of the larger geopolitical chessboard in the Himalayas, where major powers vie for influence, and smaller nations seek to safeguard their sovereignty. The region’s future stability hinges on the delicate diplomatic dance unfolding in the shadow of the world’s highest peaks.

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