Afghanistan: Background and Overview of U.S. Policy

Key Chapter Title List

1. Background: Taliban Takeover
2. Taliban Government
3. Diplomatic Relations
4. Impact on U.S. Policy: Taliban's Return to Power
5. Counterterrorism
6. Afghan Women and Girls
7. Resettlement and Settlement of Afghan Allies
8. Economic Contraction and Humanitarian Crisis
9. U.S. and International Assistance
10. Issues of Diversion of Foreign Aid
11. U.S. Policy: Sanctions and Afghan Central Bank Reserves
12. Congressional Actions and Outlook

Document Introduction

This report, updated by the Congressional Research Service on March 7, 2025, aims to provide U.S. Senators, Representatives, and committees with a professional, non-partisan analysis of the evolving situation in Afghanistan since the Taliban's return to power in 2021 and related U.S. policy options. Based on extensive open-source information, government documents, UN reports, and assessments from professional institutions, the report systematically outlines the political structure, security situation, and socio-economic conditions under Taliban rule, as well as the persistent challenges they pose to U.S. interests.

The report first reviews the background of the Taliban's rapid seizure of power in 2021, noting it was a result of both the 2020 U.S.-Taliban agreement and subsequent withdrawal decision, as well as the profound internal crisis and military collapse of the former Afghan government. Subsequently, the report provides a detailed analysis of the structure of the "caretaker government" established by the Taliban, pointing out its highly centralized leadership dominated by male Pashtuns, with the majority of its members under U.S. or UN sanctions. Although there are internal Taliban disagreements over power distribution, post-war governance, and ideology (such as girls' education), no organized political or armed opposition capable of seriously threatening its rule has yet emerged.

At the diplomatic level, the report assesses the complexity of the Taliban regime's relations with key neighboring countries and regional powers. Pakistan's relationship with the Taliban has historical ties but also faces new security challenges, particularly threats from the Pakistani Taliban. Iran, Central Asian countries, and China have adopted varying engagement strategies, with China demonstrating de facto acquiescence to Taliban rule. Notably, no country has formally recognized the Taliban as the legitimate government of Afghanistan.

The core section of the report focuses on the multifaceted impact of Taliban rule on U.S. policy. In the field of counterterrorism, the Islamic State Khorasan Province (ISIS-K) is considered a more direct and serious transnational threat than al-Qaeda, with its activities extending beyond Afghanistan's borders. Although the Taliban has imposed some constraints on al-Qaeda, the latter still uses Afghanistan as a sanctuary. The report notes that the U.S. has adopted an "over-the-horizon" counterterrorism strategy, but its effectiveness is challenged by difficulties in intelligence gathering. Regarding the situation of Afghan women and girls, the report cites UN expert opinions, stating that the systematic restrictions imposed by the Taliban may constitute crimes against humanity and "gender apartheid," dealing a devastating blow to female education, employment, and social participation, and severely hindering economic development.

Furthermore, the report delves into U.S. policy tools post-withdrawal, including humanitarian assistance, economic sanctions, and the freezing of Afghan central bank assets. The U.S. provided approximately $30 billion in aid from October 2021 to December 2024, but the risk of aid being diverted or taxes being levied by the Taliban has raised serious concerns in Congress. The comprehensive review and suspension of foreign aid initiated by the Trump administration in early 2025 has further increased uncertainty for humanitarian projects in Afghanistan. The report also mentions the complex process and challenges of providing immigration relief for tens of thousands of Afghan allies who worked for the United States.

Finally, the report examines the oversight role of the U.S. Congress on Afghanistan issues, including the establishment of the Afghanistan War Commission, requiring regular reports from the executive branch, and setting aid conditions through legislation. The report concludes that future U.S. policymakers will face a fundamental dilemma: how to provide necessary support to the Afghan people to avoid a large-scale humanitarian disaster while avoiding actions that de facto consolidate the Taliban's rule. The Taliban's lack of willingness to compromise on forming an inclusive government, protecting women's rights, and severing ties with terrorist organizations renders traditional diplomatic leverage limited and constrains U.S. policy options.