ASEAN's antiterrorism drive: Can it be sustained?

Bantarto Bandoro, Editor, 'The Indonesian Quarterly', CSIS, Jakarta

The continuing coverage of the issue of terrorism in this daily reflects both the deep concern of the society of the grave impacts of terrorist activities upon the life of human beings and the need to have an effective counter-terrorism strategy.

Terrorism, by nature is an international problem that requires a solution with an international focus. The response therefore cannot be unilateral, but must involve forging alliances with other countries. Members of the Association of Southeast Asian Nations (ASEAN), as well as other countries in other parts of the globe, were alarmed by the Sept. 11 tragedy. In the interest of humanity and the self interest of every nation in the world, a broad-based coalition against "hyper terrorism" seems to be imperative.

The issue of terrorism and the U.S. strike on Afghanistan are seen as a real test for ASEAN solidarity and cohesiveness. Perhaps inspired by the U.S. policy to establish a global coalition against terrorism, the need to eradicate local terrorism and to prevent the region from being further accused of being a haven for terrorist groups, ASEAN countries, in their seventh summit in Brunei Darussalam in November, took bold steps by issuing a joint declaration to combat terrorism, a pledge that will bind the regional group politically with the global alliance against terrorism.

ASEAN condemned the terrorist attacks on New York and Washington. The attack has brought a new level of insecurity to the world and to the ASEAN region and its neighboring countries. It has also brought countries in the region closer together and injected an urgency to the collective efforts to combat terrorism.

A series of discussions on the issue of terrorism by officials and leaders of ASEAN, set off by Megawati's tour to ASEAN member states, indicates a high level of awareness among ASEAN members that terrorists with global reach must be stopped and defeated. It also reflects their prime concerns of the internal and regional instability caused by terrorism.

The recent bilateral meeting between Megawati and the president of the Philippines, Gloria Macapagal Arroyo revealed the intent of these two countries to launch a pluralistic agreement to combat transnational crime, including terrorism, involving all five original members of ASEAN, including Malaysia and Singapore.

ASEAN's efforts to step up the antiterrorism drive also were manifested in the press conference recently given by Megawati and visiting Thai Prime Minister Thaksin Shinawatra, saying that ASEAN member countries should exert concerted efforts in fighting terrorism in the region. The issue of terrorism seems to have driven the leaders of ASEAN closer in their relationships. The issue is urgent in ASEAN, given that this region has been known to host local, regional and international terrorist networks.

The agreement reached by the leaders of ASEAN in fighting global terrorism should serve as a strong foundation for regional cooperation amongst the police, the intelligence services and the armed forces of ASEAN member countries.

From a strategic perspective, ASEAN's role in the global coalition will not only enhance ASEAN's international standing, but perhaps also encourage the enhancement of more effective international networks to address concerns that these acts of terrorism -- with their horrendous toll in human lives and material devastation -- are tearing at the very fabric of civilized societies.

ASEAN's involvement in the global fight against terrorism confirmed the evidence that the source of the threat and acts of terrorism have emanated not only from within the borders of a country, but also are cross border in nature. Hence, national efforts alone will not suffice unless accompanied by regional and global endeavors.

For ASEAN, to be an effective actor and factor in the global coalition, it must pursue a more aggressive strategy that must go beyond what it has already stated in its formal declaration, namely: make no concession to terrorists, strike no deals and bring terrorists to justice for their crimes.

The ASEAN governments have long been opposed to terrorist groups and their activities. ASEAN therefore must not ignore the possibility of direct foreign military action against terrorist groups in the region, and if such an action were to occur, the governments of ASEAN must make sure that such an action is done in concert with local counter-terrorism initiatives.

If ASEAN's antiterrorism coalition is to be successful, it must have at its disposal the full resources to back up and sustain regional initiatives and convince their respective societies that regional efforts in eradicating terrorism is both necessary and desirable, meaning that ASEAN counter-terrorism strategies must have the full and unconditional support from the public.

Because terrorist activities have serious repercussions on the security of the region, the issue of terrorism can then be considered important in shaping the future outcome of security cooperation among ASEAN's elements. But due to corrupt law enforcement institutions, weak judicial systems and inadequate cooperation due to domestic problems each ASEAN country has, ASEAN will find it difficult to totally eliminate various cells of terrorist groups that operate in the region. It is within this context that ASEAN must recognize the complexities of its "new fight" against global terrorism and the pitfalls that lie before it.

Because of ASEAN's limited resources and inherent weaknesses and difficulties, ASEAN must open itself up for whatever support the U.S. might provide to enhance the credibility of the ASEAN antiterrorism strategy.

ASEAN's fight against international terrorism will be seen as a serious business only if it has the political will to translate into policy actions what it has previously agreed to. The challenge facing ASEAN in combating terrorism is perhaps how to solve the issues that are likely to fracture the regional coalition. Issues to be worked out can be in the form of improper accusation, and therefore an official denial in a defensive manner, that one country is sympathetic to, or providing a safe haven for, certain Muslim extremist groups which are allegedly linked to prominent Muslim figures outside or inside the government.

Another issue which has the potential to fracture the ASEAN coalition is the extent to which the ASEAN members allow the full entry of foreign forces into the business of eradicating local terrorist networks and threats. All this suggests that a prudent approach in building an antiterrorist coalition is needed by ASEAN if it wants its counter-terrorism strategy to be seen as impressive, significant and indiscriminate.

Establishing a coalition against terrorism is by no means easy as it involves myriad aspects of a country's life. However, for a regional coalition against terrorism to succeed, the governments of ASEAN states must be held accountable for eliminating their local terrorist threats, and they should mobilize whatever resources they have to increase the reach throughout the region to combat terrorism by, for example encouraging regional cooperation, beginning perhaps with a call on the ASEAN Regional Forum for a "special session" on terrorism.