Regional Economic Community Building Amidst Rising Protectionism and Economic Nationalism in ASEAN
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Regional Economic Community Building amidst Rising Protectionism and Economic Nationalism in ASEAN Alexander Chandra The Habibie Center Abstract Despite its ambitious ASEAN Economic Community (AEC) project, protectionism, and economic nationalism are on the rise in ASEAN. Protectionism, however, is not new to Southeast Asia, with governments across the region employing an inward- looking economic policy when they enjoy economic stability, and pursuing economic reform when confronted with major economic challenges. Unfortunately, embryonic industries will always exist in the region, and governments will find excuses to safeguard their existence. Drawing on the Murdoch School of critical political economy approach, this article argues that the inclination towards protectionism in ASEAN be primarily rooted in the domestic political economy of member states. Apart from bringing about domestic regulatory changes, major economic liberalisation initiatives of ASEAN, such as AFTA and the AEC, significantly redistribute power and resources, and ignite struggles between competing for domestic economic influences, many of which are in favour of government’s protection. Whilst existing technical initiatives to address protectionism are useful, major crises that encourage structural adjustments in all ASEAN Member States might be needed to overcome protectionist inclinations in the region. Keywords: protectionism, economic nationalism, economic regionalism, ASEAN Introduction Association’s economic integration project. The rise of protectionism, as an The long-awaited ASEAN Economic expression of economic nationalism, in Community (AEC) was finally launched particular, has been seen by many experts on 1st January 2016. Despite the success of and practitioners alike as a key hindrance the Association of Southeast Asian to ASEAN’s effort to deepen its economic Nations (ASEAN) in officially launching integration project. While senior officials its most ambitious project to date, of ASEAN Member States (AMS) have scepticisms linger over the viability of the consistently reiterated their countries’ Journal of ASEAN Studies, Vol. 4, No. 1 (2016), pp. 1-19 ©2016 by CBDS Bina Nusantara University and Indonesian Association for International Relations ISSN 2338-1361 print / ISSN 2338-1353 electronic 2 Regional Economic Community in ASEAN commitments towards the AEC; a strong domestic pressures, AMS become significant contrast is depicted on the more reserved in their commitments ground. Despite significant achievement towards the deepening of AEC project. in reducing tariff barriers over the past decade, for instance, non-tariff measures Protectionism, however, is not (NTMs)/non-tariff barriers (NTBs) remain new to Southeast Asia, with governments rampant across the region. Though the across the region employing such an incidence of NTMs in ASEAN is relatively inward-looking economic policy when moderate in comparison with other they enjoy economic stability. On the regions of the world (Cadot et al., 2013: other hand, major economic reforms, 12), these protective measures will prove usually pursued in the form of to be major stumbling blocks for ASEAN deregulation and liberalisation, are to attain its 2025 Economic Vision.1 commonly adopted when crises emerge. AMS’ positive attitude towards the Domestically in each AMS, deepening of ASEAN’s economic protectionist push against the AEC is integration in the immediate aftermath of mounting. Shortly prior and during the the late 1990s Asian financial crisis immediate aftermath of the AEC through the launching of the AEC is a launching, public debate on the subject case in point. Consistent with Jones’s was, unsurprisingly, becoming more (2015) Murdoch School of critical political- common. While many express their economy approach, this article argues that excitement about this ambitious regional the inclination towards protectionism in economic integration project, others ASEAN be primarily rooted in the remain sceptical, highlighting their domestic political-economy of AMS. More countries’ unpreparedness to face, inter specifically, as Jones further elaborates, alia, increasing competition as a result of agreements, such as the ASEAN Free the AEC. In Indonesia, for example, Trade Area (AFTA) and the AEC, call for professionals, such as engineers, and major rescaling of economic governance at workers express their concerns over the the regional level, which affects domestic potential flood of their more qualified regulatory changes that would peers from other AMS.2 Elsewhere, such significantly redistribute power and as in the Philippines and Vietnam, experts resources, and ignite struggles to promote and business practitioners alike also warn and constraints their effects (pp. 3-4). the difficulty that micro-, small-, and Whilst existing regional initiatives to medium-sized enterprises (MSMEs) address protectionism are useful, major would face amidst the AEC.3 With such crises that encourage major structural adjustments in all AMS might be needed 1 The AEC Vision 2025 is part of an overarching to overcome fundamental protectionist ASEAN Community Vision 2025 that was adopted inclination in the region.4 at the 27th ASEAN Summit, which took place in Kuala Lumpur, in November 2015. The document serves as a guide for ASEAN to deepen its economic integration post-2015. Further details concerning the AEC Vision 2025 see ASEAN 4 The Asian financial crisis in the late 1990s, for Secretariat (2015b). example, prompted ASEAN to accelerate and 2 See, for example, Tempo (2015) and Ambarita deepen its economic integration process. The AEC, (2015). which entails, amongst other things, indirect efforts 3 See, for example, Mercurio (2015) for the to address protectionism, is a major regional Philippines and Anh (2015) for Vietnam economic reform resulted from such a process. Journal of ASEAN Studies 3 In the meantime, however, the section also briefly highlights ASEAN’s development of domestic consensus efforts to address protectionism, remains a key element in the deepening of particularly in the area of elimination of ASEAN’s economic integration project NTMs/NTBs. Discussion in section four, (Yean and Das, 2015). In this regard, as meanwhile, is focused on exploring the Yean and Das further argue, greater domestic sources of protectionist policy coherence in domestic economies, inclination in ASEAN. More specifically, it increased stakeholder consultation, attempts to illustrate sector/actor-specific mitigation of the negative impact of AEC struggles that affect AMS’ commitments on domestic stakeholders, and the towards the deepening of ASEAN overcoming of resource constraint are economic integration. Furthermore, primary areas that ASEAN needs to pay section five makes an argument for the its attention to post-2015 (pp. 7-8). Aside deepening of ASEAN’s economic from this, an effective strategy to find integration in advancing domestic common denominators to lessen reforms that could assist the dismantling protectionism is also needed. Though past of protectionist inclination amongst AMS. initiatives, particularly the Priority Finally, the article is concluded in section Integration Sectors (PIS),5 were capable of six where the author attempts to identify attaining such a goal, AMS’ half-hearted specific policy-oriented recommendations commitments render these initiatives for consideration towards dismantling ineffective. The new AEC Vision 2025, protectionist inclination in the region. which identifies a new set of sectoral priorities for ASEAN, could potentially Domestic sources of protectionism: A serve as an arena in which efforts to lessen theoretical overview protectionist measures are tested.6 Protectionism is understood as a This article is divided into four form of government’s policies and actions sections. Whilst the subsequent section that restrict trade and economic openness two offers overview on the existing in favour of the protection of local literature of domestic sources of business and industries, which can be protectionism, the analysis in Section implemented through the imposition of three is dedicated to showing trends and tariffs, quotas, subsidies, as well as other pattern of protectionism in ASEAN. The forms of direct state intervention in the economy. Two notable arguments have 5 Launched in 2004, PIS is an initiative aimed at been commonly used to promote trade accelerating integration in sectors that are deemed protectionism, and these include national priority by AMS. Originally covering 11 sectors, security and infant industry arguments. including electronics, e-ASEAN, healthcare, wood- Whilst national security argument is often based products, automotive, rubber-based products, textile and apparel, agro-based products, advanced with consideration of protecting fisheries, air travel, and tourism, in 2006 logistics an industry that is deemed critical to was added as the 12th PIS. national security; infant industry 6 The new AEC Vision 2025 identifies several key argument generally calls for temporary sectors that are deemed important to enhance protection of fledging domestic industries connectivity and sectoral cooperation in the region, and these include: (1) transport; (2) information, from foreign competition (Warrier, 2011, communication, and technology (ICT); (3) e- p. 225). Amongst all arguments commerce; (4) energy; (5) food, agriculture, and commonly used to advance trade forestry; (6) tourism; (7) healthcare; (8) minerals; protectionism, infant industry argument and