From the outbreak of the Afghanistan war in 2001 to the withdrawal of U.S. combat troops in 2014, China always kept a low profile, careful not to become involved or mediate in Afghanistan's domestic politics. This position seems to be changing; Afghanistan has been emerging as a strategic focal point in the regional ambit. Global and regional players (the United States, India, Russia, Iran and Pakistan) that have emerged as significant stakeholders are flocking to secure positions in the establishment of peace in the country. For a rising power like China, the increasing significance of Afghanistan in the regional strategic realm has spurred its bid for prominent standing through its role in multilateral diplomacy and economic development.

China has several advantages that other mediators lack, making it an ideal candidate to break the gridlock in Afghani conflicts and play the role of "honest broker." China has never intervened militarily in the Afghan conflict (neither aiding nor siding militarily with any faction) and thus carries no negative baggage from the past. Beijing has a relatively positive political image in Afghanistan, as it consistently promotes Afghan-led and Afghan-owned policy, respects the country's independence and sovereignty, and actively promotes political reconciliation there.¹ It also enjoys a rock-solid partnership with Pakistan, which holds the key to bringing the Taliban to the negotiating table. Furthermore, China is in a position to offer the parties to the conflict the incentive of economic development of the region in order to lure them away from armed conflict. This puts China in a position of being able to talk peace with all the major players.²

Moreover, diplomacy in Afghanistan helps Beijing cultivate the image of a mediator interested in bringing peace and stability to the country. This gives China both a more visible regional profile and higher stature, as well as enhanced national and international prestige. Nevertheless, these are not the only driving forces behind China's mediation diplomacy. Equally important is the growing imperative of gaining power and influence over the wider transformation of the regional balance of power. Beijing is using mediation to further its own economic interests and political influence in the countries and areas previously dominated by some of its strategic rivals.

This study examines China's growing engagement in facilitating the reconciliation process of Afghanistan. What is driving China's mediation diplomacy towards Afghanistan? How is China's approach expressed in Afghanistan? How will China make mediation diplomacy compatible with its longstanding policy of nonintervention? Does such practice suggest a change in China's foreign policy?

This study argues that China's mediation diplomacy in Afghanistan reflects both international and domestic elements and is part of a carefully devised conflict-management strategy that conforms to its nonintervention policy. China still adheres to its fundamental and uncompromising principle of nonintervention, though the policy evolves in accordance with changes and challenges in the region. While Beijing is becoming more deeply and proactively involved diplomatically in shaping the political and security developments in Afghanistan, it seems to prefer a second-tier role rather than the burden of leadership. Thus, the role of peace broker is a "legitimate way" of intervening in the domestic politics of other states to promote its own national economic interests and political influence without contravening its traditional principles.

MEDIATION AND NONINTERVENTION

Mediation is an integral part of foreign policy and instrumental diplomacy, derived from China's diplomatic and political goals, both domestic and international.³ Ways of dealing with or managing international disputes may range from avoidance and withdrawal, through bilateral negotiation, to various forms of third-party intervention.⁴ While definitions of mediation vary, it is commonly understood as intervention by more than one third-party in conflict-settlement efforts, for the purpose of improving the interaction or facilitating communication between the disputants.⁵ Mediation is a conflict-resolution tool that requires the acceptance and cooperation of the adversaries; as such, mediation efforts are initiated and undertaken only on a voluntary basis, and its proposals or recommendations are nonbinding.⁶

The practice of settling conflicts through mediators has had a rich and long history, in both Western and non-Western cultures.⁷ Mediators, like brokers, are involved in conflict management or settlement efforts, for profit or reward.⁸ In such a charged global and regional environment, mediation offers both. Benefits fall into four arenas: influencing the dispute, influencing the regional environment, influencing other mediators involved in the dispute, and influencing one's own constituency. Moreover, the nature and type of mediator (characterized by influence, support, security and status) is also an important factor in the motivation to get involved in the dispute.⁹

Since its founding in 1949, the People's Republic of China has refrained from engaging in international mediation initiatives for several reasons. First, the nonintervention principle remains at the core of its diplomatic philosophy. Second, Beijing believes that the role of a neutral onlooker, in most cases, is more advantageous for maximizing its national interests, leaving more room for maneuver in diplomatic efforts. Finally, China prefers to pursue diplomacy in a peaceful manner and avoid confrontation, unless an issue impinges on its core interests of sovereignty, security and territorial integrity.¹⁰ This trend, however, has begun to change as a result of the country's rising international status, coupled with the intensification of unresolved and newly emerging conflicts threatening its core interests and security.¹¹

It is important to understand Beijing's constructive role in resolving regional conflicts in the Korean Peninsula, Africa, South Asia and the Middle East, which to some extent is a function of China's re-emergence as a power.¹² Above all, one must try to understand the mind-sets, values, styles and skills China has brought to bear in its efforts. Its gradual, broader and deeper involvement in the resolution of conflicts abroad indicates the emergence of a unique mediation culture.¹³

In contrast to the Western mediation style that endorses the individualistic and utilitarian values of fairness, justice, equality, equity and autonomy, the Chinese style stems from a Confucian value system that incorporates social harmony, moderation, respect for authority, humility and benevolence.¹⁴ In Chinese culture, mediation reflects the values, traditions and practices central to arranging the social order, the world order and even the universal order in the pursuit of harmony.¹⁵

Chinese mediation, characterized by extreme flexibility in role-playing, is governed by two tenets. First, it is not confined to a rigid definition or label. Flexibility affords mediators room to maneuver, adapt to changing circumstances, and make adjustments, as required. Second, care has to be exercised in choosing between bilateral and multilateral channels of mediation. This is reflected in the different roles China has assumed in mediation: a chief mediator in multilateral negotiations; a participant in multilateral processes, mediating as required, privately and from the sidelines, on the basis of bilateral relationships; and a sideline mediator through bilateral channels. These are in addition to ad-hoc mediation, being a balancing force to ward off conflict.¹⁶