STUDY ASEAN and the EU: Time to develop the parliamentary dimension of the relationship Directorate-General for External Policies Policy Department Author: Xavier NUTTIN June 2015 - PE 570.454 EN Policy Department, Directorate-General for External Policies This study was written in the framework of the EU Fellowship programme. The author was the EU Fellow at the Lee Kuan Yew School of Public Policy (LKYSPP), Singapore, from September 2014 to June 2015. DG EXPO/B/PolDep/Note/2016_27 English-language manuscript was completed on 30 June 2015. © European Union, 2016 Printed in Belgium. Editorial Assistant: Elena COLLADA de LARA Feedback of all kind is welcome. Please write to the author: [email protected] . To obtain copies, please send a request to: [email protected] European Parliament's online database, 'Think tank'. The content of this document is the sole responsibility of the author and any opinions expressed therein do not necessarily represent the official position of the European Parliament. It is addressed to the Members and staff of the EP for their parliamentary work. Reproduction and translation for non-commercial purposes are authorised, provided the source is acknowledged and the European Parliament is given prior notice and sent a copy. ASEAN and the EU: Time to develop the parliamentary dimension of the relationship ABSTRACT The EU is committed by Treaty to consolidate and support democracy worldwide. Parliamentary democracy is fundamental to achieve legitimacy and accountability. Moreover exchanges between parliaments enhance their role within each country and contribute to the spread of democratic values. The EU is also a staunch supporter of regional integration as a means of fostering regional stability, supporting economic growth and addressing global challenges. However, despite Asia being the world’s most dynamic region and a growing interdependence between Asia and Europe, the parliamentary dimension of the Asia-Europe relationship remains weak: Asia remains the only continent where the EP has yet to establish a region-to-region joint parliamentary assembly. The scale, complexity and diversity of Asia – which accounts for more than half of the world’s population – may explain this situation. This study first reviews the steps taken by the European Parliament to develop and strengthen relations and takes stock of the rare initiatives that were launched at the different regional levels. It then suggests that parliamentary diplomacy has not taken root yet in most Asian countries and explores the reasons for that situation, among which the respective roles of the executive and legislative branches of government. The current shortcomings in democratic governance in Asia and the lack of political support and commitment on the European side are also identified. In conclusion it argues that despite obvious difficulties there is room to advance representative democracy in Asia. As first step deeper engagement with ASEAN should be pursued and an EP-AIPA structured partnership that would support parliament’s democratic objectives established. Nothing is possible without men and women, but nothing is lasting without institutions. Jean Monnet 3 Policy Department, Directorate-General for External Policies Table of contents 1 Democratisation, globalisation and regionalisation 5 1.1 Advancing and consolidating democracy 5 1.2 Supporting democracy in a globalised world 6 1.3 Regional integration to foster stability and growth 6 2 The EP and the promotion of parliamentary democracy 7 3 Asia: the most dynamic region in the world 8 4 The Asian regional architecture 9 5 The European Union and Asia 12 6 Intra-Asian Parliamentary Democracy 14 7 Parliamentary dimension of the EU-ASIA relations 16 7.1 Bilateral relations 17 7.2 The Asia-Europe Parliamentary Partnership (ASEP) 19 8 The Association of South-East Asian Nations (ASEAN) 20 8.1 ASEAN Political and Security Community (APSC): the non-interference policy 22 8.2 ASEAN Economic Community (AEC): myth or reality? 24 8.3 ASEAN Socio-cultural Community (ASCC): a common regional identity? 25 9 EU-ASEAN cooperation 26 10 The ASEAN Inter-parliamentary Assembly ( AIPA) 28 10.1 A little bit of history 29 10.2 Functioning of the AIPA 30 10.3 AIPA structure and bodies 32 11 Possible ways forward 33 11.1 Support the development of the Asia-Europe Parliamentary Partnership (ASEP) 35 11.2 Establish a Euro-ASEAN Joint Parliamentary Assembly 36 11.3 Develop a regular and structured relation with AIPA 38 12 Conclusion 40 4 ASEAN and the EU: Time to develop the parliamentary dimension of the relationship 1 Democratisation, globalisation and regionalisation 1.1 Advancing and consolidating democracy While democracy has advanced in the previous decades, the number of democracies today is basically no greater than it was at the start of the Many democracies are century. Many of them are experiencing serious institutional difficulties and experiencing serious weak public confidence1. The Western model of representative democracy institutional difficulties and is being increasingly challenged by countries with more authoritarian types weak public confidence but of government. A disconnect is also developing between citizens and the at the same time voters feel mainstream political parties, as well as with government. Disillusionment, deeply concerned by their declining trust and public apathy are increasingly present in modern liberal future 2 democracies but also in other systems. The so-called EU democracy-deficit is a regular subject of debate. Questions are being raised about the legitimacy of the EU Institutions and the low participation rate in the last European elections appears to confirm that people are turning their back on politics. Political leaders face a lack of trust from citizens who consider them as part of a distant world detached from realities: few people trust them to be open, transparent and accountable and few people trust them to deliver on their promises. There is a gap between decision-makers and voters. Moreover Governments have lost economic power to the market and their role in delivering public services is diminishing through outsourcing to private companies which are not held accountable. On the other hand recent elections in some EU Member States have shown that voters feel deeply concerned by their future and demand radically different approaches through protest votes. Elsewhere in the world Government policies and choices are put under greater scrutiny and challenged by opposition parties, civil society groups and ordinary citizens. A freer and better educated electorate, making full use of social media tools, has access to information, express opinions and tries to influence decision-making. The 2015 pro-democracy movement in Hong Kong, which rejected Beijing’s proposal for the election of the leader of the special administrative region as amounting to fake democracy, speaks volumes about people’s desire to have their voices heard. Popular opposition to an Representative institutions October 2014 vote by Indonesia’s parliament to curtail democracy at the must respond to citizens' grassroots level was strong enough to reverse the decision. demands and needs Advancing or consolidating democracy is about establishing credible representative institutions that can respond to citizens' demands and needs. If those institutions don’t, increasing public empowerment can instead contribute to growing disillusionment with democracy. Strong 1 Thomas CAROTHERS, Why technology hasn’t delivered more democracy, Carnegie Endowment for International Peace, June 2015 2 Peter BAJTAY, Democratic and efficient foreign policy?, European University institute, Florence, 2014 5 Policy Department, Directorate-General for External Policies political will and a constant commitment to explain and convince are required. Political parties, when they fail to address the pressing needs of citizens such as employment, welfare or security, become more and more distrusted by citizens who then turn to new alternatives. The need to oppose the populist and inward-looking political parties who are rising in the political landscape becomes more urgent by the day. 1.2 Supporting democracy in a globalised world The EU is committed to promoting democracy worldwide. Art.21 of the One of the objectives of the Treaty on the EU states that one of the objectives of the Common Foreign EU Common Foreign and and Security Policy (CFSP) is to consolidate and support democracy, the rule of Security Policy (CFSP) is to law, human rights and the principles of international law. Representative consolidate and support democracy is a thus cornerstone and the role of parliamentarians a crucial democracy, the rule of law, one: parliamentary oversight, political support and guidance, budgetary human rights and the principles of international control, are essential elements of a democratic environment. law With globalisation the boundaries between what is considered national policies and international relations are blundered. Indeed what is decided in Beijing or Washington, by Governments or global markets, will impact the well-being of populations in Brazil or Spain. This has led to greater insecurity, with many people feeling uncertain about their future, leading to mounting resistance to immigration and economic liberalisation. The automatic positive impact of globalisation is being increasingly questioned. Europe needs strong alliances with, and commitment from, its partners to tackle global