Introduction

The Association of Southeast Asian Nations (ASEAN) has long been recognized as a cornerstone of regional security and cooperation in Southeast Asia. Amidst a rapidly evolving global order marked by geopolitical rivalries, non-traditional security threats, and climate-induced challenges, ASEAN’s defense mechanisms have assumed greater significance. The 18th ASEAN Defence Ministers’ Meeting (ADMM) and the 11th ADMM-Plus, held on November 20–21, 2024, in Vientiane, Lao PDR, exemplified ASEAN’s commitment to navigating these multifaceted challenges while reinforcing its role as the region’s central security platform.

With the themes “ASEAN Together for Peace, Security and Resilience” (18th ADMM) and “Resilience to Climate-Related and Other Natural Disasters” (11th ADMM-Plus), the meetings highlighted the critical nexus between traditional defense objectives and emerging security threats. The adoption of key documents such as the Vientiane Joint Declaration and the Joint Statement on Climate Resilience underscores ASEAN’s collective resolve to address these pressing concerns through multilateral cooperation and capacity-building.

This analysis examines the strategic significance of the meetings, focusing on their objectives, outcomes, and implications for regional security. By exploring ASEAN’s evolving defense frameworks, its balancing act amidst great power competition, and the integration of climate resilience into security planning, this paper seeks to evaluate the role of ADMM and ADMM-Plus in fostering peace, stability, and sustainability in Southeast Asia. The discussion further identifies challenges and critiques, offering recommendations to enhance ASEAN’s strategic coherence and effectiveness in an increasingly complex security environment.

Background

The ADMM and its expanded format, the ADMM-Plus, have been pivotal in shaping the regional security architecture in Southeast Asia. Established in 2006, the ADMM serves as a platform for ASEAN member states to engage in dialogue and cooperation on defense and security matters. The ADMM-Plus, launched in 2010, broadens this framework by including eight key dialogue partners: Australia, China, India, Japan, New Zealand, South Korea, Russia, and the United States. Together, these mechanisms aim to enhance trust, build capacity, and promote practical cooperation among ASEAN members and their external partners.

The hosting of the 18th ADMM and 11th ADMM-Plus in Vientiane, Lao PDR, marked a significant moment for ASEAN’s collective security efforts. Laos, as the 2024 ASEAN Chair, brought the themes of peace, security, and resilience to the forefront, reflecting the region’s urgent need to address both traditional and non-traditional security challenges. The choice of themes underscores ASEAN’s recognition of the interconnected nature of contemporary threats, ranging from geopolitical tensions to climate-induced disasters.

Historically, ASEAN’s defense mechanisms have been defined by their emphasis on consensus-building and non-confrontational approaches. The ADMM and ADMM-Plus prioritize practical measures over binding commitments, focusing on initiatives like Disaster Management & Humanitarian Assistance, maritime security, and counter-terrorism. This model has enabled ASEAN to navigate its diverse member state interests while maintaining its centrality in the regional security order.

The 18th ADMM also saw the participation of Timor-Leste, reflecting ASEAN’s ongoing efforts to integrate the region’s youngest nation into its frameworks. Moreover, the ADMM-Plus, with its inclusion of major powers like the United States and China, highlighted ASEAN’s unique role as a bridge for dialogue amidst great power competition in the Indo-Pacific.

In this context, the 2024 meetings aimed to address the dual imperatives of strengthening regional resilience and reinforcing ASEAN’s centrality. By adopting key declarations and facilitating strategic engagements, the 18th ADMM and 11th ADMM-Plus sought to position ASEAN as a proactive and united entity capable of responding to the evolving security landscape. This analysis now turns to the specific themes and outcomes of the meetings to evaluate their strategic significance.

Key Themes and Outcomes

Peace, Security, and Resilience

The 18th ASEAN Defence Ministers’ Meeting (ADMM) focused on reaffirming ASEAN’s role in maintaining regional stability amid evolving traditional and non-traditional security challenges. The adoption of the Vientiane Joint Declaration on Peace, Security, and Resilience emphasized the bloc’s collective commitment to fostering a peaceful and resilient region. This declaration recognized the complexity of contemporary security dynamics, including geopolitical tensions, climate-induced disruptions, and advancing technologies that impact the global order.

A significant theme was the call to strengthen ASEAN’s centrality and unity in navigating challenges such as the South China Sea disputes and external power rivalries. The declaration underscored the need for adherence to international law, particularly the 1982 United Nations Convention on the Law of the Sea (UNCLOS), in ensuring freedom of navigation and peaceful resolution of disputes. Furthermore, it highlighted the importance of implementing the ASEAN Outlook on the Indo-Pacific (AOIP) as a guiding framework for inclusive and rules-based regional engagement.

ASEAN’s focus on resilience extended beyond traditional defense to include socio-economic and environmental dimensions. In his keynote address, Gen. Chansamone Chanyalath, the meeting’s chair, urged member states to strengthen partnerships, enhance capacity-building, and reinforce multilateral collaboration to mitigate emerging risks. This reflects ASEAN’s recognition that peace and security cannot be achieved without addressing vulnerabilities across multiple domains.

Climate Resilience and Disaster Preparedness

The 11th ADMM-Plus elevated the nexus between climate change and security, recognizing it as a critical non-traditional threat to regional stability. The Joint Statement on Resilience to Climate-Related and Other Natural Disasters marked a key outcome of the meeting, reaffirming the commitment of ADMM-Plus countries to work collectively in addressing climate-induced challenges.

The statement outlined several measures, including:

Capacity-Building Initiatives: Training programs, exercises, and workshops aimed at enhancing the ability of defense establishments to respond to disasters.
Knowledge Exchange: Sharing best practices and expertise in disaster management.
Infrastructure Resilience: Promoting eco-friendly and climate-resilient infrastructure development.

These measures build on existing frameworks such as the ASEAN Climate Resilience Network (ASEAN-CRN) and the ASEAN Militaries Ready Group on Humanitarian Assistance and Disaster Relief (AMRG on HADR). By incorporating military expertise into disaster response, ASEAN seeks to enhance its preparedness and reduce the socio-economic impacts of climate-induced events.

The focus on climate resilience also aligns with global objectives, such as the UN Sustainable Development Goal 13 (Climate Action). By linking these efforts to defense cooperation, ASEAN positions itself as a regional leader in integrating climate considerations into security planning.

Strategic Engagements

The meetings provided a platform for ASEAN to engage with its external partners, balancing interests amid intensifying great power competition. Informal dialogues with the United States and China were particularly significant, as both nations have competing visions for Indo-Pacific security.

United States Engagement:

U.S. Secretary of Defense Lloyd J. Austin III introduced a Defense Vision for a Prosperous and Secure Southeast Asia, emphasizing:

Enhanced domain awareness across air, maritime, and cyber domains.
Expanded joint exercises, such as the upcoming ASEAN-U.S. Maritime Exercise in 2025.
Defense capacity-building initiatives, including the Emerging Defense Leadership Program.

This reflects the U.S.’s commitment to supporting ASEAN’s sovereignty and bolstering its capacity to address regional challenges.

China’s Position:

Chinese Defense Minister Admiral Dong Jun presented a contrasting approach, focusing on:

Strengthening ASEAN’s centrality and opposing external interference in regional matters.
Expanding maritime security cooperation to safeguard shared interests.
Promoting the implementation of the Global Security Initiative in the Asia-Pacific.

China’s emphasis on avoiding “bloc politics” and fostering unity among regional countries underscores its preference for a multipolar regional order.

The participation of ASEAN defense ministers in commemorative ceremonies marking 50 years of ASEAN-Australia relations and 35 years of ASEAN-ROK dialogue relations further highlighted the bloc’s commitment to strengthening multilateral ties. These engagements underscore ASEAN’s ability to maintain a balanced approach to external partnerships, leveraging its centrality to promote regional stability.

Strategic Implications

Regional Security Architecture

The outcomes of the 18th ADMM and 11th ADMM-Plus reaffirm ASEAN’s centrality in the evolving regional security architecture. By fostering dialogue and cooperation among member states and external partners, these meetings have bolstered the bloc’s role as a key multilateral platform in Southeast Asia. However, ASEAN’s approach also underscores the complexities of maintaining unity and coherence amidst diverse national interests and external pressures.

One of the most notable implications is ASEAN’s continued reliance on confidence-building measures and capacity-building initiatives rather than binding commitments. This reflects its consensus-driven model, which has been instrumental in maintaining inclusivity. However, this approach is increasingly tested by geopolitical tensions, particularly in the South China Sea. The emphasis on adherence to international law, including UNCLOS, and the push for an effective Code of Conduct (COC) demonstrate ASEAN’s intent to manage disputes diplomatically. Yet, the protracted negotiations and the differing priorities of member states highlight the challenges of collective decision-making.

The inclusion of Timor-Leste in these meetings is another significant development. As ASEAN’s newest member-in-waiting, Timor-Leste’s participation reflects the bloc’s commitment to expanding its influence and fostering regional integration. However, integrating Timor-Leste into ASEAN’s defense mechanisms will require sustained capacity-building support, as well as active engagement with external partners.

ASEAN’s Climate and Security Nexus

The prioritization of climate resilience at the 11th ADMM-Plus signals a transformative shift in ASEAN’s approach to non-traditional security threats. By linking climate change to defense and disaster preparedness, ASEAN is positioning itself at the forefront of regional efforts to address the security implications of environmental challenges. This integration has several strategic implications:

Enhanced Regional Cooperation: The commitment to joint training, knowledge-sharing, and eco-friendly infrastructure development strengthens ASEAN’s collective capacity to address climate-induced risks. These efforts also align with global climate action goals, enhancing ASEAN’s international standing.
Military Involvement in Disaster Response: The emphasis on utilizing military resources for Humanitarian Assistance and Disaster Relief (HADR) operations underscores the role of defense establishments in mitigating climate impacts. This approach not only enhances disaster preparedness but also builds trust and interoperability among member states.
Potential Leadership Role: ASEAN’s focus on climate-security integration positions it as a regional leader in addressing the intersection of environmental and security challenges. This could pave the way for greater collaboration with international organizations and external partners, further solidifying its centrality in global climate-security discourse.

However, these initiatives also highlight the need for robust implementation frameworks. ASEAN must overcome logistical and financial constraints to ensure that these commitments translate into tangible outcomes.

ASEAN’s Balancing Act

ASEAN’s ability to navigate the competing interests of major powers remains a cornerstone of its regional strategy. The meetings in Vientiane showcased the bloc’s skill in maintaining engagement with both the United States and China, despite their contrasting visions for Indo-Pacific security.

Engagement with the United States:

The U.S.’s emphasis on enhancing domain awareness and joint exercises reflects its strategy of countering China’s influence in the region. By aligning these initiatives with ASEAN’s priorities, such as climate resilience and maritime security, the U.S. aims to strengthen its partnerships without directly challenging ASEAN’s centrality. However, the growing focus on military capacity-building risks being perceived as an attempt to militarize the region, which could strain relations with certain ASEAN member states.

Engagement with China:

China’s emphasis on maritime cooperation and opposition to “bloc politics” aligns with its broader goal of countering U.S. influence in Southeast Asia. By highlighting the importance of ASEAN’s unity and centrality, China seeks to position itself as a cooperative partner rather than a hegemonic power. However, its assertive actions in the South China Sea remain a significant source of tension, challenging ASEAN’s ability to maintain neutrality.

The informal dialogues with both powers underscore ASEAN’s role as a diplomatic bridge, yet this balancing act is fraught with challenges. The risk of being drawn into great power rivalries necessitates a careful and consistent approach to external engagement.

Criticisms and Challenges

Weaknesses in Decision-Making and Implementation

ASEAN’s consensus-based approach, while fostering inclusivity, often hampers decisive action. This structural limitation was evident in the meetings’ discussions on key issues such as the South China Sea disputes and climate resilience. The adoption of broad, non-binding declarations, like the Vientiane Joint Declaration and the Joint Statement on Climate Resilience, reflects ASEAN’s preference for symbolic gestures over concrete commitments.

This tendency stems from the diverse priorities and capacities of ASEAN member states. While wealthier members like Singapore and Malaysia may have advanced capabilities to address security and climate challenges, less developed members like Laos and Cambodia often lack the resources to implement regional initiatives. This disparity undermines the bloc’s ability to act cohesively, particularly in response to urgent threats.

Moreover, the integration of Timor-Leste poses additional challenges. While its inclusion is a positive step toward regional integration, the country’s limited institutional and defense capacities may strain ASEAN’s resources and hinder the implementation of collective agreements.

Managing Great Power Competition

ASEAN’s role as a neutral platform for dialogue is increasingly strained by intensifying U.S.-China rivalry. The informal meetings with defense leaders from both countries highlighted the bloc’s precarious position as it seeks to balance external partnerships without compromising its centrality.

The absence of a bilateral meeting between the U.S. and Chinese defense ministers on the sidelines of the 11th ADMM-Plus is indicative of the growing mistrust between these powers. While ASEAN has made efforts to mediate tensions—such as promoting the ASEAN Outlook on the Indo-Pacific (AOIP)—its ability to influence great power dynamics remains limited. Furthermore, ASEAN’s reliance on external partners for security and economic support risks exacerbating divisions within the bloc, as member states align themselves with different powers based on their national interests.

Navigating South China Sea Tensions

The South China Sea remains a perennial source of contention, with overlapping territorial claims involving several ASEAN members and China. While the Vientiane Joint Declaration reaffirmed ASEAN’s commitment to a rules-based order and the 1982 UNCLOS, the lack of tangible progress on the Code of Conduct (COC) negotiations underscores the bloc’s challenges in addressing this issue.

China’s assertive actions, such as the militarization of disputed features and its rejection of international rulings, have deepened divisions within ASEAN. Member states like Vietnam and the Philippines advocate for a stronger collective stance, while others, including Cambodia and Laos, prioritize economic ties with Beijing. This divergence complicates ASEAN’s efforts to present a unified front, weakening its ability to resolve disputes or deter further escalations.

Climate-Security Integration

While ASEAN’s focus on climate resilience is commendable, the practical implementation of these initiatives remains a significant challenge. The Joint Statement on Climate Resilience calls for capacity-building and infrastructure development, but the lack of clear funding mechanisms and timelines raises questions about the feasibility of these goals.

Moreover, the emphasis on military involvement in disaster response may face resistance from civilian agencies and non-governmental organizations, which often view militarization as counterproductive to humanitarian efforts. Balancing these concerns with the need for effective disaster preparedness will require careful coordination and resource allocation.

Internal Divisions and Regional Unity

The diverse political systems and strategic priorities of ASEAN member states often undermine regional unity. For instance:

Thailand and the Philippines maintain close security ties with the U.S., while Cambodia and Laos align more closely with China.
Indonesia, as ASEAN’s largest member, often seeks to assert leadership but faces challenges in achieving consensus among smaller states.

These internal divisions weaken ASEAN’s ability to act decisively on contentious issues, limiting its effectiveness as a regional security actor.

Conclusion and Recommendations

The 18th ASEAN Defence Ministers’ Meeting (ADMM) and the 11th ADMM-Plus represented important milestones in ASEAN’s ongoing efforts to address evolving security challenges while maintaining its centrality in the regional order. By focusing on themes of peace, security, and resilience, and by highlighting the nexus between climate change and security, the meetings underscored ASEAN’s adaptability in navigating a complex and dynamic geopolitical environment. However, significant challenges remain, particularly in fostering unity among diverse member states, balancing external power rivalries, and translating high-level commitments into actionable outcomes.

Key Findings

Strengthened Regional Dialogue: The adoption of the Vientiane Joint Declaration and the Joint Statement on Climate Resilience reaffirmed ASEAN’s commitment to multilateralism and its ability to convene diverse stakeholders for meaningful discussions.
Climate-Security Focus: By integrating climate resilience into its defense agenda, ASEAN demonstrated leadership in addressing non-traditional security threats.
Balancing Great Power Competition: ASEAN successfully facilitated dialogue with the United States and China, but its role as a neutral mediator is increasingly tested by intensifying rivalries.
Implementation Challenges: Disparities in member state capacities and the bloc’s consensus-driven model hinder the effective implementation of regional initiatives.

Recommendations

Enhancing Institutional Capacity: ASEAN should establish clearer mechanisms for implementing its declarations and frameworks, including funding strategies, timelines, and accountability measures. The creation of a dedicated ASEAN Security Implementation Unit could help streamline this process.
Deepening Climate-Security Integration: Building on the Joint Statement on Climate Resilience, ASEAN should develop a Regional Defense Strategy on Climate Change, with specific objectives for military involvement in disaster response and climate adaptation.
Strengthening Unity: To mitigate internal divisions, ASEAN should promote greater alignment of member state policies through confidence-building measures and regular capacity-building programs. This will ensure more cohesive responses to shared challenges.
Balancing External Partnerships: ASEAN must continue to assert its centrality by maintaining neutrality and engaging with all external partners. This requires proactive diplomacy to mediate tensions and avoid being drawn into the geopolitical competition between the United States and China.
Expediting South China Sea Progress: ASEAN should intensify efforts to finalize the Code of Conduct (COC)with China, incorporating enforceable provisions that reflect international law and the 1982 UNCLOS. This would enhance ASEAN’s credibility as a rule-based mediator.

Final Thoughts

As ASEAN transitions its chairmanship from Laos to Malaysia, it faces the dual imperatives of strengthening its institutional coherence and maintaining its centrality in the Indo-Pacific. The 18th ADMM and 11th ADMM-Plus demonstrated ASEAN’s capacity to address a wide range of security challenges, but they also revealed the complexities of navigating internal and external pressures. Moving forward, ASEAN must continue to adapt its strategies and foster stronger partnerships to ensure peace, security, and resilience in the region.

The themes of these meetings—focused on collaboration, sustainability, and inclusivity—remain vital as ASEAN seeks to consolidate its position as a cornerstone of regional stability. By addressing its structural limitations and leveraging its collective strengths, ASEAN can chart a path toward a more secure and resilient Southeast Asia.

Photo credit: asean.org

ADMM and ADMM-Plus 2024: ASEAN’s Blueprint for a Secure and Resilient Region