ASEAN: Forum, Caucus, and Community

Abstract

The most important benefits of ASEAN economic co-operation to date have probably derived more from the association's broad role in maintaining a harmonious international order than in the form of specific benefits of economic co-operation. This article considers the evolution of co-operation in ASEAN from a political-economy context, noting the considerable progress the association has made over the years. It addresses three principal issues in this context: what has been the motivation behind ASEAN co-operaiton in its 30 years of existence? How will new regional arrangements affect ASEAN co-operation? What will be the implications of the ASEAN enlargement for political and other forms of co-operation? I. Introduction ASEAN was created 30 years ago for a variety of political and security reasons, but it was formally described as a framework for economic, social and cultural co-operation. Ambiguity about the institution's character and purposes remains today. Some see ASEAN as a community of nations with such a significant set of common interests that it can establish a framework for internal economic and political co-operation within the grouping. For others, ASEAN can be more accurately described as a caucus, that is, a small group that exists to protect and project a specific set of common interests in larger global and regional arenas. ASEAN might also be described as a forum, which, like the United Nations, encompasses countries with such a heterogeneous set of institutions and interests that it must devote as much of its efforts to bridging and containing differences as to exploring and exploiting areas of co-operation. Whether ASEAN is basically community, caucus, or forum has important implications for its ability to undertake collective action. Today's ASEAN has elements of all the above, but at present it is probably more of a forum which can occasionally act as a caucus. While it would be difficult to describe it as a broad community with a strong sense of identity, there are ASEAN communities of elites and interests in specialized areas. However, ASEAN advocates and critics alike often want to project it as having more overall unity than is the current reality. To ASEAN enthusiasts this results in pipe dreams for actions beyond the grouping's capabilities and desires. Critics complain that ASEAN has admitted countries which call its community credentials into question or charge that the grouping has failed to develop effective means of co-operation in many areas, such as a common defense against currency speculation. In fact, from the beginning, ASEAN included countries with different kinds of political institutions and economic situations. Although the initial members all had close ties with the West, it was not, as often alleged, simply a Cold War organization with a common ideological orientation. The disparate outlooks and interests set political limitations from the beginning on the scope for collective action whether in economic or diplomatic spheres. The members co-operated where they could, and by unwritten consensus avoided bringing into ASEAN the issues on which they had differences. Most importantly, over time they sought to widen areas of co-operation. But since the interests of the members evolve and are reinterpreted over time - in part perhaps due to learning processes and identification-building associated with positive past experience with ASEAN co-operation -- there is an expectation that the caucus and community elements of ASEAN will increase. The ASEAN Free Trade Area (AFTA) is an important example where a form of co-operation that was almost inconceivable a decade ago is now on a fast track towards realization.1 The establishment of the ASEAN Regional Forum (ARF) for political and security discussions is another. This recent record of developing new areas for collective endeavours has given the original ASEAN members considerable confidence about their ability to act as a caucus and strengthen the elements of community while integrating the lesser-developed countries of Southeast Asia into the association. …