Undesirable consequences of an ASEAN peacekeeping force<\/p>\n
Bantarto Bandoro, Editor, The Indonesian Quarterly, Centre For Strategic and
\nInternational Studies (CSIS), Jakarta<\/p>\n
bandoro@csis.or.id<\/p>\n
Since the 2003 ASEAN Bali summit, which laid down new
\nfoundations for more cohesive ASEAN security cooperation,
\nIndonesia has been quite expressive in pursuing its proposal for
\nan ASEAN Security Community. In a recent meeting of ASEAN senior
\nofficials here, Indonesia proposed the formation of an ASEAN
\npeacekeeping force that would one day help settle regional
\ndisputes.<\/p>\n
The idea was part of the action plan of the ASEAN Security
\nCommunity. The idea was again put forward by our foreign minister
\nHassan Wirayuda in his address to the 4th ASEAN -- UN Conference
\nhere. The argument may have been that being closer to the
\nconflict, ASEAN can react faster and have a better understanding
\nof the conflict than the international community as a whole, as
\nrepresented by the United Nations.<\/p>\n
Now that ASEAN sees itself as a security community it means
\nthat cooperation for long-term regional peace and stability needs
\nto be enhanced, intensified and strengthened. However, the
\nprocess of becoming a security community will inevitably be
\ncharacterized by the emergence of new potential regional
\nproblems, that are likely to have negative repercussions on
\nregional order.<\/p>\n
It is therefore timely that Indonesia came up with the idea of
\nan ASEAN peacekeeping force. At a time when ASEAN is set to
\nbecome the real engine for its own regional order through the
\nASEAN Security Community and is transforming itself into a more
\nsolid, cohesive and outward-looking community, cooperation in the
\nfield of peacekeeping is not only necessary, but also desirable
\ngiven the continued vulnerability ASEAN is to face in the future.<\/p>\n
The idea of a peacekeeping force reflects the wish of
\nIndonesia that ASEAN employ and project a non-coercive means of
\nresolving conflict and avoid direct confrontation. This indeed is
\nthe essence of an ASEAN Security Community. The idea of an ASEAN
\nregional peacekeeping force may have been based on the assumption
\nthat such a mechanism would be a major contributing factor in the
\nmaintenance of regional peace and security.<\/p>\n
Thus, the ASEAN Security Community is unlikely to develop into
\na true community unless it has at its disposal a politically
\nreliable regional mechanism for a non-coercive conflict
\nresolution.<\/p>\n
If the proposal is endorsed by the respective member
\ngovernments of ASEAN countries, then it has to be the product of
\na regional consensus. However, there has already been a negative
\nreaction from the minister of foreign affairs of Thailand who was
\nreported as saying that a regional peacekeeping force was not
\nnecessary.<\/p>\n
So, just like the idea of ASEAN Security Community when it was
\nfirst fleshed out by Indonesia, the proposal for an ASEAN
\npeacekeeping force is likely to spur heated debate among the
\nmembers countries of ASEAN. Such debate is likely to occur in the
\nASEAN Ministerial Meeting here in June.<\/p>\n
The idea for an ASEAN peacekeeping force is actually good for
\nthe long-term security of the region, but it might not be the
\ncase for other members of ASEAN as they have to think through all
\nthe complexities of the proposal once it is put into reality.<\/p>\n
ASEAN should be aware of the fact that peacekeeping operations
\ndo not rely exclusively on military activity, but on diplomacy.
\nThis would mean that collective ASEAN diplomatic power would have
\nto be reinforced and strengthened if ASEAN is to prove to the
\nworld the political and security benefits of a regional
\npeacekeeping force.<\/p>\n
In the next few years the region will witness a number of
\nproposals for the security of the region particularly from
\nIndonesia, as ASEAN itself as an organization continues to search
\nfor common ground rules for joint action.<\/p>\n
It is during such a process that ASEAN members will face very
\ncomplex problems emanating either from their participation in the
\nregional peacekeeping force or from their domestic setting.<\/p>\n
Some of the problems ASEAN must anticipate, among other
\nthings, are (a) a lack of general readiness with both lack of
\nrapid deployment capability and of general military capability;
\n(b) a lack of understanding about what is needed and what is to
\nbe expected from the peacekeeping operation, particularly with
\nregard to use of force; and (c) some members may have vested
\nnational interests in the country or with the parties in
\nconflict, which in turn undermine the unity of purpose required
\nfor cohesive action. Others may be unwilling to support a
\nparticular operation and thus fragmenting the cohesiveness of the
\ngroup.<\/p>\n
It could be said that efforts to establish an ASEAN regional
\npeacekeeping force may produce undesirable consequences. In terms
\nof interests for example, it is always possible that ASEAN views
\nconflicts in the region through the narrow national or regional
\nself-interests. It is not impossible that states may have close
\neconomic, political and military connections with conflicting
\nparties.<\/p>\n
Thus, they are less able or likely to be impartial. All too
\noften, regional states are part of the problem and not part of
\nthe solution. If this is the case, then an ASEAN peacekeeping
\noperation is bound to encounter difficulties, not to mention
\nother constraints emanating either from resources and capability
\nor from ASEAN's adherence to the principle of non-interference.<\/p>\n
ASEAN peacekeeping operations would certainly enhance ASEAN
\ncooperation on both political and military levels. But ASEAN must
\ndo its utmost to avoid contradictory views on how the operation
\nshould be framed and implemented.<\/p>\n
There are, however, dangers that might come with the new ASEAN
\ninterest in peacekeeping. A purely military approach, using a
\nheavy hand where it is not required, could tarnish the image of
\nASEAN.<\/p>\n
Furthermore, an expansion of ASEAN's responsibility into the
\narea of peacekeeping should not be used as an excuse to carry out
\nintervention in the name of peacekeeping. It is thus imperative
\nthat the intricacies and complexities of an ASEAN peacekeeping
\nforce be studied thoroughly if ASEAN is to be seen as successful.<\/p>\n
The Indonesian idea for regional peacekeeping has now reached
\nthe capitals of other ASEAN countries, with one country already
\nvoicing its reservations. The question that ASEAN must address
\nnow is whether or not the regional peacekeeping force is a must
\nfor the region.<\/p>\n
The writer is also lecturer at the International Relations,
\nPost Graduate Studies Program, Faculty of Social and Political
\nScience, University of Indonesia.<\/p>",
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