International bureaucrats in the UN Security Council debates: A speaker-topic network analysis

Intergovernmental deliberations in the United Nations Security Council (UNSC) are typically considered the realm of sovereign nation states. We challenge this position by studying the role of the UN Secretariat in UNSC debates, focusing on the debates on Afghanistan (1995–2017). We combine natural language processing with a network theoretical perspective to observe speaker position, topic introduction, and topic evolution and we complement this analysis with an illustrative case study. The quantitative analysis shows that UN officials take an overall impartial position but that they do, at times, introduce and promote their own topics putting them in the position to shape the debate. The qualitative case study selects one ‘bureaucratic topic’ to confirm bureaucratic agency. Combined, our methods allow to study the role of speakers in a debate and show that the UN bureaucracy acted as an autonomous speechmaker even in a venue were bureaucratic agency seems unlikely – the UNSC.