Chinas New Territorial Claim In Eastern Bhutan

China expanded its territorial dispute with Bhutan in 2019 by including the country's eastern sectors for the first time. This occurred when China attempted to block UNDP's Global Environment Facility (GEF) funding for the Sakteng Wildlife Sanctuary, claiming it was disputed territory. This claim was eventually overruled. Previously, the boundary dispute was focused on Jakarlung, Pasamlung, and the Doklam plateau.

Bhutan has maintained a low profile regarding its boundary negotiations with China and does not have formal diplomatic relations with China. From 1984 to 2016, both countries held 24 rounds of boundary talks, primarily concentrated on the northern and western regions of Bhutan. India is concerned that China's presence in Doklam and other areas near Bhutan could bring China closer to India's vulnerable Siliguri Corridor, also known as the 'chicken's neck.' Bhutan serves as a buffer between India and China. In 2017, the Chinese army intruded into the Doklam plateau, Bhutanese territory at the trijunction between India, Bhutan, and China. The India-Bhutan Friendship Treaty of 2007 mandates close cooperation on issues relating to their national interests.

China's Assertion in Bhutan: A Deep Dive into Territorial Disputes and Regional Implications

In 2019, a seemingly minor incident involving the United Nations Development Programme (UNDP) and the Sakteng Wildlife Sanctuary in eastern Bhutan unveiled a significant shift in China's territorial ambitions in the region. China's attempt to block funding for the sanctuary, claiming it as disputed territory, marked the first time Beijing had publicly laid claim to Bhutanese land beyond the long-contested areas in the north and west. This action, while ultimately unsuccessful in preventing the funding, served as a stark reminder of the complex geopolitical landscape of the Himalayas and the growing assertiveness of China in its periphery, with significant implications for both Bhutan and India. The incident necessitates a comprehensive examination of the historical context of the Sino-Bhutanese boundary dispute, the strategic interests of the key actors involved, and the potential consequences for regional stability.

The Sakteng Sanctuary Incident: Unveiling a New Front

The Sakteng Wildlife Sanctuary, nestled in the easternmost part of Bhutan, is a biodiversity hotspot, home to a variety of rare and endangered species, including the red panda, snow leopard, and Himalayan black bear. It is also culturally significant, being the ancestral home of the Brokpa people, a semi-nomadic community with a unique culture and traditions. The sanctuary's importance for both environmental conservation and cultural preservation made it a suitable candidate for funding from the UNDP's Global Environment Facility (GEF), a financial mechanism that provides grants to developing countries for projects that benefit the global environment.

However, when the UNDP presented the project proposal for the Sakteng Wildlife Sanctuary to the GEF Council in June 2020, China objected, claiming that the area was part of a disputed territory. This objection came as a surprise to both Bhutan and the international community, as previous boundary negotiations between China and Bhutan had focused primarily on the northern and western regions of the country. China's claim to the Sakteng area, which borders the Indian state of Arunachal Pradesh, introduced a new and potentially destabilizing dimension to the already complex Sino-Bhutanese border dispute.

The Chinese delegation argued that the Sakteng area was historically part of China and that Bhutan had illegally occupied it. They presented maps and historical documents to support their claim, although these were not made public. Bhutan, for its part, strongly rejected China's claim, asserting that the Sakteng Wildlife Sanctuary was an integral part of its territory and that there was no historical basis for China's claim. Other members of the GEF Council also expressed skepticism about China's claim, noting that it was inconsistent with China's previous statements and actions regarding the Sino-Bhutanese border. Eventually, the GEF Council overruled China's objection and approved the funding for the Sakteng Wildlife Sanctuary project.

Historical Roots of the Sino-Bhutanese Border Dispute

The border between China and Bhutan, stretching for approximately 477 kilometers, has been a source of contention for decades. Unlike China's border disputes with India, which have resulted in armed conflicts, the Sino-Bhutanese dispute has been managed through relatively peaceful negotiations. However, the lack of a formal border treaty has left the issue unresolved and susceptible to periodic escalations.

The historical roots of the dispute can be traced back to the Qing Dynasty's expansion into Tibet in the 18th century. While Bhutan maintained a degree of autonomy, it also paid tribute to the Qing court, a relationship that China interprets as evidence of Bhutan's subordinate status. Following the collapse of the Qing Dynasty in 1912 and the subsequent establishment of the Republic of China, the issue of border demarcation remained unresolved. In the 1950s, after the People's Republic of China (PRC) consolidated its control over Tibet, it began to assert its claims over various territories along its periphery, including areas claimed by Bhutan.

The initial focus of the Sino-Bhutanese border dispute was on the northern and western regions of Bhutan. In the north, China claimed several areas, including Jakarlung and Pasamlung, which are important grazing lands for Bhutanese herders. In the west, the dispute centered on the Doklam plateau, a strategically significant area located at the trijunction of India, Bhutan, and China. The Doklam plateau is of particular concern to India, as it overlooks the Siliguri Corridor, a narrow strip of land that connects India's northeastern states to the rest of the country.

From 1984 to 2016, China and Bhutan held 24 rounds of boundary talks, primarily focused on these northern and western regions. While some progress was made in identifying the disputed areas and exchanging maps, no formal agreement was reached. The talks were often characterized by disagreements over historical evidence, differing interpretations of maps, and the overall scope of the negotiations.

The Doklam Standoff: A Turning Point

The Doklam standoff of 2017 marked a turning point in the Sino-Bhutanese border dispute and had significant implications for India's security concerns. In June 2017, Chinese troops began constructing a road in the Doklam plateau, a move that Bhutan protested as a violation of its sovereignty. India, citing its security concerns and its treaty obligations to Bhutan, intervened to halt the construction. The resulting standoff lasted for over two months and brought India and China to the brink of military conflict.

The Doklam standoff highlighted the strategic importance of the Doklam plateau for India. The plateau overlooks the Siliguri Corridor, a narrow strip of land that connects India's northeastern states to the rest of the country. This corridor, often referred to as the "chicken's neck," is strategically vital for India, as it is the only land route connecting the northeast to the mainland. If China were to gain control of the Doklam plateau, it could potentially cut off India's access to its northeastern states, posing a significant security threat.

The Doklam standoff also underscored the close relationship between India and Bhutan. The India-Bhutan Friendship Treaty of 2007 commits both countries to cooperate closely on issues relating to their national interests. India's intervention in Doklam was a clear demonstration of its commitment to Bhutan's security and its willingness to stand up to China in the region.

The Expansion to Eastern Bhutan: A Strategic Calculation?

China's claim to the Sakteng Wildlife Sanctuary in eastern Bhutan represented a significant departure from its previous negotiating position. While the northern and western regions of Bhutan had been the focus of the border dispute for decades, the eastern sector had never been explicitly claimed by China. This sudden expansion of China's territorial ambitions raised questions about its strategic calculations and its long-term goals in the region.

Several factors may have contributed to China's decision to include eastern Bhutan in its territorial claims. First, the Sakteng Wildlife Sanctuary is located near the border with the Indian state of Arunachal Pradesh, which China claims in its entirety as South Tibet. By claiming the Sakteng area, China may be seeking to strengthen its claim over Arunachal Pradesh and to put pressure on India to make concessions in the ongoing border negotiations.

Second, the Sakteng area is strategically important, as it provides access to the Tawang region of Arunachal Pradesh, which is home to a major Buddhist monastery and is considered to be of great religious and cultural significance to Tibetans. By gaining control of the Sakteng area, China could potentially exert greater influence over the Tawang region and undermine India's control over Arunachal Pradesh.

Third, China's claim to the Sakteng area may be part of a broader strategy to assert its dominance in the Himalayas and to challenge India's regional influence. China has been investing heavily in infrastructure development along its border with India, including roads, railways, and airports. These infrastructure projects not only enhance China's military capabilities but also allow it to project its power and influence throughout the region.

Bhutan's Dilemma: Balancing Act Between Two Giants

Bhutan, a small landlocked kingdom nestled in the Himalayas, faces a complex and delicate geopolitical situation. Sandwiched between two giant neighbors, India and China, Bhutan must carefully navigate its foreign policy to protect its sovereignty and territorial integrity. Bhutan has a long-standing and close relationship with India, which has been its main security and economic partner for decades. However, Bhutan also recognizes the importance of maintaining a stable relationship with China, its other neighbor and a rising global power.

Bhutan's foreign policy is guided by the principle of non-alignment, which means that it does not align itself with any major power bloc. Bhutan seeks to maintain friendly relations with all countries, but it also prioritizes its own national interests and its commitment to its core values, such as environmental conservation and cultural preservation.

Bhutan's relationship with India is based on the India-Bhutan Friendship Treaty of 2007, which commits both countries to cooperate closely on issues relating to their national interests. India is Bhutan's largest trading partner and provides significant financial and technical assistance to Bhutan. India also plays a key role in Bhutan's security, providing military training and equipment to the Royal Bhutan Army.

Bhutan's relationship with China is more complex. Bhutan does not have formal diplomatic relations with China, but the two countries have maintained contact through periodic boundary negotiations. Bhutan is wary of China's growing assertiveness in the region and its territorial claims along the Sino-Bhutanese border. However, Bhutan also recognizes the importance of maintaining a stable relationship with China, given its proximity and its growing economic power.

Bhutan's strategy for managing its relationship with China is to maintain a low profile and to avoid taking any actions that could provoke a strong reaction from Beijing. Bhutan has consistently emphasized its commitment to peaceful negotiations to resolve the border dispute and has avoided making any public statements that could be interpreted as critical of China.

India's Concerns: The Siliguri Corridor and Regional Stability

India views China's actions in Bhutan with growing concern. China's territorial claims along the Sino-Bhutanese border, particularly its claim to the Doklam plateau, pose a direct threat to India's security interests. The Doklam plateau overlooks the Siliguri Corridor, a narrow strip of land that connects India's northeastern states to the rest of the country. If China were to gain control of the Doklam plateau, it could potentially cut off India's access to its northeastern states, posing a significant security threat.

India also views China's growing influence in Bhutan as a challenge to its regional dominance. India has traditionally been the dominant power in South Asia, and it views China's growing presence in the region as an attempt to undermine its influence. India is particularly concerned about China's Belt and Road Initiative (BRI), a massive infrastructure development project that aims to connect China with the rest of Asia, Europe, and Africa. India views the BRI as a tool for China to expand its economic and political influence in the region and to challenge India's position as the leading power.

India's strategy for dealing with China's growing assertiveness in Bhutan is to strengthen its relationship with Bhutan and to provide it with the necessary support to resist Chinese pressure. India has increased its financial and technical assistance to Bhutan and has stepped up its military cooperation with the Royal Bhutan Army. India has also made it clear that it will not tolerate any Chinese actions that threaten Bhutan's sovereignty or its security interests.

The Role of International Organizations: UNDP and the GEF

The incident involving the Sakteng Wildlife Sanctuary highlights the role of international organizations, such as the UNDP and the GEF, in promoting sustainable development and environmental conservation. These organizations provide financial and technical assistance to developing countries for projects that benefit the global environment and promote sustainable development. However, their work can be complicated by political tensions and territorial disputes.

The UNDP is a United Nations agency that works to eradicate poverty and reduce inequalities. It provides support to developing countries in a variety of areas, including sustainable development, democratic governance, and crisis prevention and recovery. The GEF is a financial mechanism that provides grants to developing countries for projects that benefit the global environment. It is jointly managed by the UNDP, the World Bank, and the United Nations Environment Programme (UNEP).

China's attempt to block funding for the Sakteng Wildlife Sanctuary project demonstrates its willingness to use its political influence to advance its territorial claims. While China's objection was ultimately overruled, the incident highlights the challenges that international organizations face when operating in politically sensitive areas.

Legal Frameworks: The India-Bhutan Friendship Treaty of 2007

The India-Bhutan Friendship Treaty of 2007 provides the legal framework for the close relationship between India and Bhutan. The treaty commits both countries to cooperate closely on issues relating to their national interests. Article 2 of the treaty states that "Neither Government shall allow the use of its territory for activities harmful to the security and interests of the other." Article 5 states that "The two Governments shall cooperate closely with each other on issues relating to their national interests. Neither Government shall enter into any obligations or undertake any action that might be prejudicial to the interests of the other."

The India-Bhutan Friendship Treaty underscores India's commitment to Bhutan's security and its concern over China's actions in the region. India's intervention in the Doklam standoff was a clear demonstration of its commitment to upholding the treaty and protecting Bhutan's sovereignty.

Stakeholder Positions: A Complex Web of Interests

The Sino-Bhutanese border dispute involves a complex web of stakeholders, each with their own interests and perspectives.

• China: China's official position is that it is seeking to resolve the border dispute with Bhutan through peaceful negotiations. However, its actions suggest that it is also seeking to expand its influence in the region and to assert its territorial claims. China's underlying interests include strategic control over border regions, access to resources, and weakening India's regional influence.
• Bhutan: Bhutan's official position is that it is committed to peaceful negotiations to resolve the border dispute with China. However, it also seeks to preserve its sovereignty and territorial integrity. Bhutan's underlying interests include maintaining its independence, protecting its cultural heritage, and promoting sustainable development.
• India: India's official position is that it supports Bhutan's sovereignty and expresses concern over China's growing presence in the region. India's underlying interests include maintaining regional stability, protecting its Siliguri Corridor, and countering China's influence.

Broader Implications: A Shifting Geopolitical Landscape

The Sino-Bhutanese border dispute has broader implications for regional and international relations.

• Political: The dispute has increased tensions between China and India and has the potential to lead to further border disputes.
• Diplomatic: The dispute has strained relations between China and Bhutan and has created challenges for India's diplomatic efforts in the region.
• Security: The dispute has increased security concerns for India and has the potential for military escalation.

Related Ongoing Issues: A Complex Web of Connections

The Sino-Bhutanese border dispute is connected to a number of related ongoing issues, including:

• China-India border dispute: The China-India border dispute is a long-standing issue that has led to several armed conflicts. The Sino-Bhutanese border dispute is often seen as a part of this broader conflict.
• China's Belt and Road Initiative: China's Belt and Road Initiative is a massive infrastructure development project that aims to connect China with the rest of Asia, Europe, and Africa. India views the BRI as a tool for China to expand its economic and political influence in the region.
• India's Act East Policy: India's Act East Policy is a foreign policy initiative that aims to strengthen India's ties with the countries of Southeast Asia. The Sino-Bhutanese border dispute is seen as a challenge to India's Act East Policy.

Historical Connections: Echoes of the Past

The Sino-Bhutanese border dispute has historical connections to a number of past events, including:

• Sino-Indian War of 1962: The Sino-Indian War of 1962 was a brief but bloody conflict between China and India. The war was fought over disputed territory along the Sino-Indian border.
• Previous border disputes between China and Bhutan: China and Bhutan have had several border disputes in the past. These disputes have been managed through peaceful negotiations, but they have never been fully resolved.

Future Outlook: Uncertainty and Challenges Ahead

The future of the Sino-Bhutanese border dispute is uncertain. It is likely that tensions between China and India will continue, and that China will continue to assert its territorial claims. Bhutan will face increased pressure to balance its relations with both countries.

Several factors could influence the future of the dispute, including:

• The outcome of the China-India border negotiations: If China and India are able to reach a settlement on their border dispute, it could pave the way for a resolution of the Sino-Bhutanese border dispute.
• The political situation in Bhutan: A change in government in Bhutan could lead to a shift in its foreign policy and its approach to the border dispute with China.
• The regional balance of power: A shift in the regional balance of power could alter the dynamics of the Sino-Bhutanese border dispute.

The incident involving the Sakteng Wildlife Sanctuary serves as a reminder of the complex and evolving geopolitical landscape of the Himalayas. China's growing assertiveness in the region poses significant challenges for both Bhutan and India, and the future of the Sino-Bhutanese border dispute remains uncertain. The need for peaceful negotiations, respect for international law, and a commitment to regional stability is greater than ever.

The implications of China's actions extend beyond the immediate territorial dispute. They touch upon the broader dynamics of power in Asia, the role of international organizations in mediating conflicts, and the challenges faced by small states in navigating the competing interests of larger neighbors. As China continues to rise as a global power, its actions in Bhutan will be closely watched by the international community as a barometer of its intentions and its commitment to peaceful resolution of disputes.