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Australia, Brazil, Indonesia, Korea and South Africa in International Affairs Going Global Going Global Australia, Brazil, Indonesia, Korea and South Africa in International Affairs edited by Melissa Conley Tyler Wilhelm Hofmeister Australian Institute of International Affairs © 2011 Editorial matter, Melissa H. Conley Tyler and Wilhelm Hofmeister; individual works, the authors Publishers Konrad-Adenauer-Stiftung 34 Bukit Pasoh Road Singapore 089848 Tel: +65 6227 2001 Fax: +65 6227 8343 Email: [email protected] Website: www.kas.de/singapore Australian Institute of International Affairs Stephen House 32 Thesiger Court Deakin ACT 2600, Australia Tel: +02 6282 2133 Fax: +02 6285 2334 Email: [email protected] Website: www.aiia.asn.au All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without the prior consent of the copyright holders. The responsibility for facts and opinions expressed in this publication rests exclusively with the contributors and their interpretations do not necessarily reflect the views or the policy of the publishers. National Library Board Singapore Cataloguing in Publication Data BL85 201.5 -- dc22 OCN642645383 Printed in Singapore Contents EDITORIAL vii PART 1: REGIONAL POWERS, REGIONAL RESPONSIBILITIES 3 Nomfundo Ngwenya 1. South Africa in Africa 17 Graeme Dobell 2. Many Codes: Australia’s Myriad Regional Homes 33 Raymond Atje 3. The Rise of East Asia: Managing the Change PART 2: GLOBAL POWERS 43 Nick4. Regional Bisley and Global Powers in a Changing International Order: Australia’s Dealings with the Powerful 57 Heungkyu Kim 5: Rising China and its Implications for South Korea’s Foreign Policy 67 Hyun-Wook Kim 6. Obama’s East Asia Policy and US–South Korea Relations 75 Mzukisi Qobo 7. The New Century of Emerging Powers and South Africa’s Response 85 Renato G. Flôres Jr and Denise Gregory 8. Brazil’s New Role in International Politics PART 3: GLOBAL CHALLENGES 93 Wiryono Sastrohandoyo 9. On Global Challenges 105 Soon-chun Lee 10. Towards Strengthening the NPT Regime 111 Xu Yi-chong 11. Challenges and Opportunities: Energy Security 121 Mariana Luz 12. A Brazilian Perspective on Climate Change 129 13. Facing the Challenges of Climate Change: RomyThe Case Chevallier of South Africa and its Potential Collaboration with Other Southern Economies PART 4: GLOBAL SYSTEM 155 Mark14. From Beeson the G20 to the G2?: The Evolving International Order and its Implications for Australia 165 Jusuf Wanandi and Maria Monica Wihardja 15. G20: Perspectives from the Asia-Pacific 175 Daniel16. Reforming D. Bradlow Global Economic Governance: A Strategy for Middle Powers in the G20 185 Seonjou Kang 17: Middle Powers in Global Governance: A Korean Perspective EVENT PROGRAM 193 Editorial Melissa H. Conley Tyler* and Wilhelm Hofmeister** This volume is the product of a joint Australian Institute of International Affairs and Konrad Adenauer Stiftung event ‘Going Global: Australia, Brazil, Indonesia, Korea and South Africa in International Affairs’ held in Jakarta on 25-26 May 2010. This event broke new ground by bringing together five institutes of international affairs to discuss the ways in which their countries might be seen as ‘Going Global’ in a changing international system. Impressive delegations attended from five institutes active in interna- tional issues: the Australian Institute of International Affairs (AIIA), Centro Brasileiro de Relações Internacionais (CEBRI), Indonesia’s Centre for Strategic and International Studies (CSIS), South Korea’s Institute of Foreign Affairs and National Security (IFANS) the South African Institute of International Affairs (SAIIA). The event was funded by the Konrad Adenauer Stiftung with support for the Australia delegation from the Australian Department of Foreign Affairs and Trade. The event provided a forum to discuss and review how Australia, Brazil, Indonesia, South Korea and South Africa deal with their respective places in the world and in their regions. It was thought that this grouping, although unusual, met the requirements for fruitful comparative discussion. There are a number of similarities between the countries: all five countries are important cornerstones of their regions and yield influence through their foreign policies and membership of multilateral institutions. However at the same time there are a number of salient differences between these countries, including in the way that they conceptualise and implement their foreign policy. Discussions lived up to expectations by exploring both similarities and differences to il- luminate common problems. Following opening remarks, discussion was divided into four topics: • Regional Powers, Regional Responsibilities • Dealing with Global Powers • Global Challenges • Global System * National Executive Director, Australian Institute of International Affairs. ** Director, Regional Programme, Political Dialogue Asia, Konrad Adenauer Foundation. viii Going Global This structure has been preserved in this publication. Section one looks at how the five countries manage issues in their regions. Section two looks at these countries’ relations with great powers – and, in some cases, their desire to be global powers. Section three looks at global challenges that are shared by all five countries – such as nuclear non-proliferation, energy security and climate change. Finally, the last section focuses on recent changes in global gover- nance, particularly the G20, and ways that the five countries could collaborate to contribute to the development of a global system more accommodating of their needs. So-Called Middle Powers One of the surprises for organisers of this event was the strong interest each had in dialogue among this unusual grouping. Participants shared the view that discussing commonalities and differences among Australia, Brazil, Indonesia, South Korea and South Africa would be useful – even if it wasn’t clear what this group of countries should be called. Participating countries were variously defined as: • “countries with regional influence and growing global importance” • “countries with some influence on our respective regions” • “like minded countries with significant standing in their respective regions” • “countries with expectations that they will play a greater role” • “so called middle powers with aspirations for international status” • “like-minded five” • “countries whose voices have to be heard.” Each of the countries could be seen as on a journey moving from a regional perspective to a more global one. This is part of a more interesting variable new geometry than the old dichotomies of East-West or North-South. Many things are shared between these countries such as global challenges, which each country faces equally, and the emerging global system which all have a stake in and a place in. All are faced by the issue of how to relate to global power shifts. They also have some ability to help solve global problems. However the many real differences between the five countries remain evident. A range of relevant differences determined how each country was impacted by global challenges – for example, as developed or developing countries, with large or small population, that are reliant on coal or include renewables in their energy matrix, subject to Kyoto Protocol ‘Annex 1’ or not, under or not under the US nuclear umbrella, and with an industrial or a resources-dependent economy. Editorial ix Regional Powers, Regional Responsibilities Looking at the role of each country in its immediate region, all except South Korea have a specific – if not unchallenged – role as a regional power. For South Korea, the nature of its neighbourhood – surrounded by China and Japan – means that being a regional power is not a realistic goal. Each of the participating countries has a stake in its region due to a mix of factors including humanitarian impulses, national self-interest and reciprocity for past support from neighbours. At the same time, each country has some ambivalence about leadership. Many of these countries are uncomfortable with the disparities between themselves and others in the region. They are uncom- fortable with power and feel the pull of solidarity. It was noted in discussions that “the problem is not being devoid of power, but having too much power.” The concepts of “accidental hegemons” and “reluctant leaders” were raised. For Brazil, one answer is “to act in non-hegemonic, non-leadership role.” For South Africa, the answer is “continental co-operation.” For Indonesia, there is ambivalence about exercising power given its membership in ASEAN. While Australia does at times attempt to act as the “regional superpower” in the Pacific, it doesn’t get much thanks for doing so. Common issues discussed were questions on what is meant by power, the legitimacy of power, the need for solidarity with other countries and the issue of one country representing – or being perceived to represent – a whole region. Discussion also focused on the concept of region for each country. It was noted that Australia has a range of potential “homes” in the world: for example, the Pacific, the Indian Ocean or the Asia Pacific more broadly. For Indonesia, the idea of its “region” is moving from ASEAN to a wider idea of the region. Korea’s region has historically been a battleground of great powers and can’t be understood without reference to the great powers. This contrasted strongly with the view on South America which is generally perceived a less important
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