ASEAN as network governance: An alternative lens to evaluate policymaking and performance

Abstract

Background: This article offers a new perspective of the Association of Southeast Asian Nations (ASEAN) as network governance (NG) using the policy network theory (PNT) for the analysis. Methods: Two case studies were selected from the ASEAN Community to examine the applicability and effectiveness of NG in promoting ASEAN cooperation. These case studies were chosen due to their prominence and the prevalence of critical comments about their effectiveness in promoting cooperation. The content analysis utilised primary data from ASEAN reports, documents, research articles and processes, and studies on NG and policy networks. A literature review was conducted using online academic databases and ASEAN-related websites. The search covered the period from June 2019 to March 2021, with further searches conducted between January and July 2023. These data collection efforts provided a robust analysis of the case studies within the NG and ASEAN integration contexts. Results: The findings show ASEAN as a hybrid structure which has supported its survival and relevance. This approach provides legitimacy for ASEAN globally by purposefully adopting structures similar to the EU without the supranational elements. It also showcases ASEAN’s motivation for asserting its centrality. Adopting a hybrid structure has led to ASEAN's soft institutionalisation, driven by its norms and characterised by a less empowered secretariat, where the member states are the decision-makers and implementors of policies. It opens a pathway to recognising ASEAN states’ autonomy, where the actors’ will and interests affect decision-making and defines performance. Conclusions: This article demonstrates NG's viability in promoting ASEAN's centrality in regional cooperation and institutional arrangements and allows for a nuanced assessment of its performance considering the context of the issue and ASEAN's history and emphasising the member states' primacy in policymaking. The NG framework contributes to ASEAN’s legitimacy, regional cooperation and performance despite its inherent limitations.