COMMENTARY
Antiterrorism pact a big step forward for ASEAN

By Brad Glosserman

The recent meeting of the ASEAN Regional Forum (ARF), the Asia Pacific's premier security dialogue, has been applauded as a watershed for the institution — and rightly so.

Among foreign ministers greeted by Brunei's Sultan Hassanal Bolkiah at the ASEAN Regional Forum were (from left) Yashwant Sinha of India, Tang Jianxuan of China and Colin Powell of the United States. The meeting silenced critics and marked important shifts. Associated Press

This year's meeting was considered a real test of the ARF's continuing relevance. The failure to respond with more than words to the threat of international terrorism — especially when Southeast Asia has been identified as the "second front" in the war on terror — would have confirmed the view of critics who argue that it is little more than a "talk shop," long on rhetoric but short on concrete action. Fortunately, the ARF rose to the challenge.

The ARF Statement on Measures Against Terrorist Financing lays out specific steps that the members will take to fight the terrorist threat. The language is important. The statement does not say that participants "should" or "agree that ... "

Instead it is quite emphatic: "ARF participants will implement quickly and decisively measures that the United Nations has identified as mandatory to combating terrorist financing. We will block terrorists' access to our financial system. We will work with other relevant international bodies ... " The statement goes on to list concrete steps that the participants have agreed to take pertaining to:

• Freezing terrorist assets.
• Implementation of international standards.
• International cooperation on the exchange of information and outreach.
• Technical assistance.
• Compliance and reporting.

Moreover, the chairman's statement, the only "official" document that the ARF issues, refers to the terrorist financing statement and notes that the ARF has "agreed to review its implementation." In other words, both the language and context of the statements commit the ARF members to concrete steps.

Apart from silencing the critics, the agreement marks two other important shifts for the forum. The first concerns the maturation of the forum itself. It is generally accepted that the particulars of the Asia-Pacific security environment necessitate a go-slow approach to institution building. As a result, ARF had to start with the most elementary confidence building before it could consider conflict prevention, and finally move on to the most sensitive topic of all, conflict resolution. (This is especially sensitive because it could involve military intervention to resolve disputes.) At this stage, it is argued, the focus belongs on confidence-building measures that would increase trust among members, although there have been some tentative forays into the realm of preventive diplomacy.

Yet the Statement on Measures against Terrorist Financing calls for clearly defined action. For example, the steps on international cooperation enhancing international exchange of information or setting up a Financial Intelligence Unit — go considerably beyond mere confidence-building measures. In other words, ARF members have agreed to do things that are a good distance beyond what had previously been argued was possible. This could be a watershed for the forum.

The second important development of this year's meeting concerns the focus of the discussions. About one-third of the section of the chairman's statement that highlights the issues discussed is devoted to terrorism. In fact, as much space is given to terrorism and related issues (treaties and conferences controlling weapons of mass destruction) as is given to geographically focused East Asian security concerns (such as developments on the Korean Peninsula or the South China Sea).

This shift toward "transnational" threats requires a broad-based approach to security, and that formulation takes us closer to the notion of "comprehensive national security" that China has championed. On the other hand, such an approach has potentially ominous implications for governments that have been zealous protectors of national sovereignty and national prerogatives. Those sensitivities were on full display during the negotiations among ASEAN nations that preceded the U.S.-ASEAN Joint Declaration for Cooperation to Combat International Terrorism. Indonesia and Vietnam were both reluctant to sign any agreement that might legitimize foreign intervention on their soil. To meet their concerns, the agreement recognizes "the principles of sovereign equality, territorial integrity and nonintervention in the domestic affairs of other states," the guiding principles of ASEAN diplomacy.

Nevertheless, ASEAN still endorsed information sharing, the development of more effective counterterrorism policies, and enhancing liaison relationships among law enforcement agencies. While bounded by "their respective domestic laws and their specific circumstances," each of these measures once again seems to move ASEAN member governments beyond mere confidence building.

Of course, genuine evolution of the ARF depends on governments taking concrete steps to implement these agreements. They could still falter. But if they do, the fault will be their own, and not that of the institution. This year, both ASEAN and the ASEAN Regional Forum have taken a real step forward.

It is vitally important that the United States acknowledge that progress. It appears to have done so. Secretary of State Colin Powell was given high marks by regional diplomats and analysts after his recent tour of the region. Also significant, curiously enough, was President Bush's cameo in the video prepared for the traditional dinner that followed the ARF. Southeast Asian diplomats appreciate how busy the president is; his willingness to take time from his schedule to make a brief appearance in the U.S. presentation made an impression. Engagement comes in many forms, and the United States needs to recognize that a little effort can go a long way.

Brad Glosserman is Director of Research of Pacific Forum CSIS. He recently spent 10 days in Southeast Asia. The ARF chairman's statement is available online.