Thailand's Foreign Policy in the Post-Cold War Period: Uncovering New Actors in the Foreign Policy-Making Process Towards Neighbouring Countries

ResearchOnline@JCU This file is part of the following reference: Yathip, Pasuwat (2015) Thailand's foreign policy in the post-Cold War period: uncovering new actors in the foreign policy-making process towards neighbouring countries. PhD thesis, James Cook University. Access to this file is available from: http://researchonline.jcu.edu.au/49389/ The author has certified to JCU that they have made a reasonable effort to gain permission and acknowledge the owner of any third party copyright material included in this document. If you believe that this is not the case, please contact [email protected] and quote http://researchonline.jcu.edu.au/49389/ Pasuwat Yathip Thailand’s Foreign Policy in the post-Cold War Period: Uncovering New Actors in the Foreign Policy-making Process towards Neighbouring Countries Doctor of Philosophy College of Arts, Society and Education James Cook University 1 November 2015 Acknowledgements I would like to thank my advisory panel, Dr. Surin Maisrikrod, Associate Professor Doug Hunt, and Dr. Mark David Chong, for guiding and supporting me during my PhD project. I would like to especially thank Dr. Surin Maisrikrod, my primary supervisor, who encouraged me to study for my PhD. To me, Dr. Surin is not only my supervisor but also my life mentor. You taught many things that I can adapt to my job as a diplomat at the Ministry of Foreign Affairs. Without Dr. Surin, I would not be able to finish this thesis. I would like to thank the Royal Thai Government for supporting me as a scholarship student. And I am so proud that now I am working as a civil servant. I will prove to my country that every Baht that the government spent for my education will be worth it. I will apply knowledge that I learnt during my studies in Australia to my career. I would like to thank my family, General Vichit Yathip, Lieutenant General Churaipatra Yathip and Mrs.Kulapatra Yathip Slocombe, who always stayed by my side and comforted me every time I felt depressed. Also I would like to thank the people, seniors, and friends in Townsville especially Mr.Pirom Singtothong and Mrs.Ladda Hanley who always helped me overcome various obstacles. i Statement of the Contribution of Others Nature of Assistance Contribution Names, Titles, and Affiliations of Co- contributors Intellectual support Editorial assistance Learning Centre, JCU Dr.John Edgar, JCU Financial support Field research Royal Thai Government Expenses while conducting research in Australia ii Abstract The main aim of this thesis is an in-depth study of new actors in Thai foreign policy-making in the post-Cold War period – particularly involving Thailand’s relationships with Cambodia, Laos, and Myanmar. With regard to actors in Thai foreign policy, most literature has focused on state- based actors, particularly those responsible for the security policy of the state. However, in the post-Cold War period, “new actors” have become more involved in policy-making. The lack of any serious empirical study of new actors in Thai foreign policy-making has resulted in rather superficial analyses of Thai foreign policy in recent years. These analyses do not accurately reflect the substantial changes in Thai foreign policy that emerged towards the end of the Cold War. The Cold War conflicts (1950s-1990s) and the Cambodian conflicts (1970s-1990s) dominated foreign relations between Thailand and the neighbouring countries for several decades. They affected not only external foreign policy directions but also influenced internal domestic politics and the resultant economic and social circumstances of these countries. But the end of the Cold War in 1989/1990, and the end of the Cambodian conflict in the late 1980s, marked the end of ideological tension in Southeast Asia. The nature of these relationships shifted from pre- dominantly military confrontation to more economic cooperation. Economic issues in the region became more prominent, and new institutions fostering economic cooperation emerged at the sub-regional, regional, and inter-regional level. The emerging economic paradigm required expertise in such diverse areas as trade, investment, finance, labour, information technology and intellectual property. The military and the Ministry of Foreign Affairs which had dominated Thailand’s foreign policy-making for several decades were required to play different roles, especially in promoting economic relationships with Thailand’s neighbours. From the late 1980s, they were increasingly required to act as salespersons for Thai businesses, facilitators for the business community, and to improve the quality of diplomatic intelligence and advice on economic opportunities. These new roles have required new actors, both state and non-state, to implement new foreign policy objectives. iii Moreover, in 1988, the new government instigated a new foreign policy direction that regarded Thailand’s near neighbours as trade partners rather than security threats. To transform Thailand into a regional commercial hub, improved relationships with Cambodia, Laos, and Myanmar were achieved through trade and investment-based relationships. Concurrently, the influence of economic-related government agencies and the private sector increased. Non-traditional state actors such as the Ministry of Commerce, the Ministry of Industry, and the National Economic and Social Development Board (NESDB) have been more directly and actively working in cooperation with the traditional actors to produce an effective foreign policy under a new international context. Non-state actors have utilised their connections with policy decision makers to influence policy direction, used their connections with party leaders, and provided financial support in exchange for reciprocal decisions in policy outcomes that benefited their businesses. This thesis has also revealed that the new actors, were able to influence foreign policy both at the formulation and implementation stages. At the formulation stage, their influence was observed in the roles of the NESDB, the Ministry of Industry together with the Chambers of Commerce, especially the provincial ones in the border areas. Each organization has played a significant role in the establishment of considerable international economic cooperation such as Special Economic Zones (SEZs) in Chiang Rai and Tak Provinces. At the implementation stage, new actors, especially non-state actors, have also played a significant role cooperating with the government agencies. As a result of these new actors’ influence, many projects have been carried out and policies developed that changed Thailand’s relationships with Cambodia, Laos, and Myanmar. iv Table of Content Acknowledgements………………………………………………………………...………………..i Statement of the Contribution of Others………………………………………………………...ii Abstract……………………………………………………………………….…………………….iii Table of Content……………………………………………………………………………………iv List of Figures…………………………………………………………………………………….…v Note...………………………………………………………………………………………………..vi Chapter I Introduction: Significance of Study, Theoretical Frameworks, and Methodology……………………………………………………………………………………...…1 Chapter II Thailand’s Foreign Policy: Historical Background………………………….…26 Chapter III Thailand’s Foreign Policy-making Process………………………………….…64 Chapter IV Non-traditional State Actors in Thailand’s Foreign Policy-making…………………………………………………….………………..…...93 Chapter V Non-state Actors in Thailand’s Foreign Policy-making……………………....117 Chapter VI New Actors in Thailand’s Foreign Policy-making towards Its Near Neighbours: the Economic Quadrangle and the North-South Economic Corridor…………………………………………………….170 Chapter VII New Actors in Thailand’s Foreign Policy-making towards Its Near Neighbours: Ayewady – Chao Phraya – Mekong Economic Strategy (ACMECS) and Special Economic Zones (SEZs)…………………………….……………………………222 Conclusion………………………………………………………………………………………..259 References………………………………………………………..…………………………….…265 v List of Figures Figure 1: The Mekong River, flows north to south………………………………………….172 Figure 2: The Economic Quadrangle…………………………………………………………175 Figure 3: Greater Mekong Sub-region (GMS)………………………………………………192 Figure 4: GMS Economic Corridors………………………………………………………….197 Figure 5: the R3 Route………………………………………………………………………….208 Figure 6: ACMECS……………………………………………………………………………...225 Figure 7: Chiang Rai Province…………………………………………………………......…249 Figure 8: Tak Province…………………………………………………………………….…...257 vi Note Names of Thai people can appear in many styles in academic papers. In this thesis, however, the western convention of using surnames will be employed. vii Chapter I Introduction: Significance of Study, Theoretical Frameworks, and Methodology Introduction Thailand’s relationships with its immediate Indo China neighbors, Cambodia, Laos, and Myanmar have been complex and at times intriguing. These relationships have covered various historical, political, security, cultural, social, and economic aspects. They are widely considered to be significant influences on international politics; resulting in both international conflict and economic cooperation. They have also been a topic of extensive debate in Thailand. The most distinctive period in recent relationships between Thailand and its neighbors was the Cold War when Southeast Asia was politically divided by either the adoption of, or rejection of communism. Brunei, Indonesia, Malaysia, the Philippines, Singapore, and Thailand were non- communist. The Indochinese countries: Cambodia, Laos, and Vietnam, were communist. Myanmar was not a communist country but adopted an isolationist

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