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Velvet fists: The paradox of defence diplomacy in Southeast Asia

Published online by Cambridge University Press:  12 October 2020

Jun Yan Chang*
Affiliation:
S. Rajaratnam School of International Studies, Nanyang Technological University, Singapore
Nicole Jenne
Affiliation:
Pontificia Universidad Católica de Chile, Institute of Political Science, Santiago, Chile
*
*Corresponding author. Email: isjychang@ntu.edu.sg

Abstract

Defence diplomacy represents a notable paradox. On the one hand, it is a cooperative activity to build strategic and moralistic trust between states and thus positively shape the environment in which foreign policy is made. On the other hand, defence diplomacy also involves competition and demonstrations of military power, which may contravene its goal of building moralistic trust and undermine confidence between states. This article deals with the latter competitive realpolitik elements of defence diplomacy in terms of secrecy, swaggering, and shows of force that have largely been ignored in the literature. Building on a theoretical discussion of whether defence diplomacy works, the case of peacekeeping in Southeast Asia is analysed to illustrate how defence diplomatic activities produce effects contrary to their stated aims.

Type
Research Article
Copyright
Copyright © The Author(s) 2020. Published by Cambridge University Press on behalf of the British International Studies Association

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References

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13 Jun Yan Chang, ‘Defense diplomacy in ASEAN?’, Thinking ASEAN, 17 (November 2016), p. 5. ‘Military diplomacy’ is sometimes used synonymous to ‘defence diplomacy’, for example, see B. S. Sachar, ‘Military diplomacy through arms transfers: A case study of China’, Strategic Analysis, 28:2 (2004), pp. 290–310; K. A. Muthanna, ‘Military diplomacy’, Journal of Defence Studies, 5:1 (2011), pp. 1–15. This article uses the term ‘defence diplomacy’ for consistency, which includes not only the military, but the entire defence sector.

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31 For instance, Andrew Carr and Daniel Baldino, ‘An Indo-Pacific norm entrepreneur? Australia and defence diplomacy’, Journal of the Indian Ocean Region, 11:1 (2015), pp. 30–47; Brendan Taylor, ‘Time for a stocktake’, in Carr (ed.), Defence Diplomacy, pp. 4–6.

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39 A few recent studies have examined competition within certain activities that may be classified under defence diplomacy, but they have not done so with specific regard to the defence diplomacy concept; see Kersti Larsdotter, ‘Military strategy and peacekeeping: An unholy alliance?’, Journal of Strategic Studies, 42:2 (2019), pp. 191–211; Montgomery, ‘Signals of strength’, pp. 309–30.

40 For instance, see James D. Fearon, ‘Rationalist explanations for war’, International Organization, 49:3 (1995), pp. 379–414; Alexander L. George, Forceful Persuasion: Coercive Diplomacy as an Alternative to War (Washington, DC: United States Institute of Peace Press, 1991).

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51 Jonathan Renshon, Fighting for Status: Hierarchy and Conflict in World Politics (Princeton, NJ: Princeton University Press, 2017), p. 1; see also T. V. Paul, Deborah Welch Larson, and William C. Wohlforth (eds), Status in World Politics (Cambridge: Cambridge University Press, 2014).

52 Alan Chong and Jun Yan Chang, ‘The international politics of air disasters: Lessons for aviation disaster governance from Asia, 2014–2015’, Cambridge Review of International Affairs, 31:3–4 (2018), pp. 258–61, emphasis in original.

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54 Erik Lin-Greenberg, ‘Non-traditional security dilemmas: Can military operations other than war intensify security competition in Asia?’, Asian Security, 14:3 (2018), p. 4. While we agree this is a dilemma, we disagree that such a ‘non-traditional security dilemma’ is comparable to the unknowns driving the vicious spiral of the classic ‘security dilemma’ as Lin-Greenberg claims.

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57 Lin-Greenberg, ‘Non-traditional security dilemmas’, p. 2.

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62 Capie, ‘Structures, shocks and norm change’, pp. 1–26; See Seng Tan, ‘“Talking their walk”? The evolution of defense regionalism in Southeast Asia’, Asian Security, 8:3 (2012), pp. 232–50.

63 ASEAN Secretariat, ‘About the ASEAN Defence Ministers’ Meeting (ADMM)’ (6 February 2017), available at: {https://admm.asean.org/index.php/about-admm/about-admm.html} accessed 18 August 2018.

64 Singh and Tan, ‘Introduction: Defence diplomacy and Southeast Asia’, p. 3. The title From ‘Boots’ to ‘Brogues’ underlines the ‘not-so-improbable image of soldiers shedding their combat boots for leather brogues’ in defence diplomacy activities, as one of the editors write; see See Seng Tan, ‘From talkshop to workshop: ASEAN's quest for practical security cooperation through the ADMM and ADMM-plus processes’, in Singh and Seng Tan (eds), From ‘Boots’ to ‘Brogues’: The Rise of Defence Diplomacy in Southeast Asia, p. 29.

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67 For instance, see Amitav Acharya, Constructing a Security Community in Southeast Asia: ASEAN and the Problem of Regional Order (London: Routledge, 2001), pp. 57–60; see also Lee Jones, ‘ASEAN's unchanged melody? The theory and practice of “non-interference” in Southeast Asia’, The Pacific Review, 23:4 (2010), pp. 479–502.

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70 Marty Natalegawa, Does ASEAN Matter? A View from Within (Singapore: ISEAS-Yusof Ishak Institute, 2018), p. 53.

71 Cottey and Forster, Reshaping Defence Diplomacy, pp. 9–12.

72 Alex J. Bellamy, Paul D. Williams, and Stuart Griffin, Understanding Peacekeeping (2nd edn, Cambridge: Polity Press, 2010), pp. 58–9.

73 ASEAN Secretariat, ASEAN Regional Forum: Documents Series 1994–2006 (Jakarta: ASEAN Secretariat, 2007), pp. 40–4.

74 ASEAN Secretariat, ASEAN Political-Security Community Blueprint 2025 (Jakarta: ASEAN Secretariat, 2016), pp. 11, 24.

75 See Alex J. Bellamy and Paul D. Williams, Providing Peacekeepers: The Politics, Challenges, and Future of United Nations Peacekeeping Contributions (Oxford: Oxford University Press, 2013).

76 Dian Septiari, ‘Indonesia committed to greater peacekeeping contribution: FM Retno’, The Jakarta Post (24 January 2019), available at: {https://www.thejakartapost.com/news/2019/01/24/indonesia-committed-to-greater-peacekeeping-contribution-fm-retno.html} accessed 6 July 2020.

77 Brunei Ministry of Defence, Defending the Nation's Sovereignty: Expanding Roles in Wider Horizons, Defence White Paper 2011 (Bandar Seri Begawan: Brunei Ministry of Defence, 2011), p. 20.

78 Yee-Kuang Heng and Weichong Ong, ‘The quest for relevance in times of peace: Operations other than war and the third-generation Singapore armed forces’, in Chiuyuki Aoi and Yee-Kuang Heng (eds), Asia-Pacific Nations in International Peace Support and Stability Operations (New York: Palgrave Macmillan, 2014), p. 144.

79 Quoted in Michael Leifer, Singapore's Foreign Policy: Coping with Vulnerability (London: Routledge, 2000), p. 24.

80 Quoted in Heng and Ong, ‘The quest for relevance’, p. 144.

81 ‘A Question & Answer with Royal Thai Armed Forces Rear Adm. Nuttapong Ketsumboon’, Indo-Pacific Defense Forum (22 April 2019), available at: {http://apdf-magazine.com/thailand-deploys-peacekeeping-forces/} accessed 6 September 2019.

82 Alistair D. B. Cook, ‘Southeast Asian perspectives on UN peacekeeping: Indonesia and Malaysia’, Journal of International Peacekeeping, 18:3–4 (2014), p. 171.

83 Nicole Jenne, ‘Indonesia Must Look Beyond Peacekeeping to Impress at the UN’, East Asia Forum (23 February 2019), available at: {https://www.eastasiaforum.org/2019/02/23/indonesia-must-look-beyond-peacekeeping-to-impress-at-the-un/} accessed 2 September 2019; see also Evan A. Laksmana, ‘Indonesia's rising regional and global profile: Does size really matter?’, Contemporary Southeast Asia, 33:2 (2011), pp. 170–1; Capie, ‘Indonesia as an emerging peacekeeping power’, pp. 1–27.

84 Dewi Fortuna Anwar, ‘Indonesia's peacekeeping operations: History, practice, and future trend’, in Aoi and Heng (eds), Asia-Pacific Nations in International Peace Support and Stability Operations, p. 189.

85 Moch Faisal Karim, ‘Middle power, status-seeking and role conceptions: The cases of Indonesia and South Korea’, Australian Journal of International Affairs, 72:4 (2018), pp. 343–63.

86 Thomas Lum et al., ‘Comparing Global Influence: China's and U.S. Diplomacy, Foreign Aid, Trade, and Investment in the Developing World’, Congressional Research Service Report for Congress (15 August 2008), p. 41.

87 Catherine Jones, ‘South East Asian powers and contributions to peacekeeping operations: UN-ASEAN partnering for peace?’, Australian Journal of International Affairs, 74:1 (2020), pp. 89–107.

88 Siew Mun Tang, ‘Asean peacekeeping force? Points to ponder’, The Straits Times (28 May 2015).

89 ASEAN Secretariat, ‘ASEAN Defence Ministers' Meeting: Concept Paper on the Establishment of ASEAN's Peacekeeping Centres Network’ (2011), available at: {https://www.asean.org/storage/images/archive/document/18471-j.pdf} accessed 2 September 2019.

90 United Nations Department of Political Affairs, ‘Information Note on High-Level Independent Panel on Peace Operations’ (16 June 2015), available at: {https://www.un.org/undpa/en/speeches-statements/16062015/HIPPO-report} accessed 6 September 2019.

91 Amitav Acharya, ‘The Association of Southeast Asian Nations: “Security community” or “defence community”?’, Pacific Affairs, 64:2 (1991), p. 161.

92 Mely Caballero-Anthony, ‘Introduction: UN peace operations and Asian security’, International Peacekeeping, 12:1 (2005), p. 8.

93 Adrian Kuah, ‘The ASEAN security community: Struggling with the details’, RSIS Commentary, 21 (2004).

94 Quoted in Belinda Helmke, ‘The absence of ASEAN: Peacekeeping in Southeast Asia’, Pacific News, 31 (2009), pp. 4–6.

95 Chanintira Na Thalang and Pinn Siraprapasiri, ‘ASEAN's (non-)role in managing ethnic conflicts in Southeast Asia: Obstacles to institutionalization’, in Alice D. Ba, Cheng-Chwee Kuik, and Sueo Sudo (eds), Institutionalizing East Asia: Mapping and Reconfiguring Regional Cooperation (New York: Routledge, 2016), pp. 131–55.

96 Songphol Sukchan, ‘New normal of Indonesia-Thailand relations’, The Jakarta Post (27 February 2020), available at: {https://www.thejakartapost.com/academia/2020/02/27/new-normal-of-indonesia-thailand-relations.html} accessed 6 July 2020.

97 Nicole Jenne, ‘The Thai-Cambodian border dispute: An agency-centred perspective on the management of interstate conflict’, Contemporary Southeast Asia, 39:2 (2017), p. 335.

98 Interview with a high-ranking military officer, Bangkok (5 September 2014).

99 David Capie, ‘Evolving Attitudes to Peacekeeping in ASEAN’, in The National Institute for Defense Studies (ed.), Maintaining Order in the Asia-Pacific, NIDS International Symposium on Security Affairs 2017 (Tokyo: The National Institute for Defense Studies, 2018).

100 See also Kyawt Kyawt Khine, ‘The making of Indonesia's concept of ASEAN security community’, Universities Research Journal, 4:7 (2011), pp. 247–50.

101 Prashanth Parameswaran, ‘Malaysia wants an ASEAN peacekeeping force’, The Diplomat (21 February 2015), available at: {https://thediplomat.com/2015/02/malaysia-wants-an-asean-peacekeeping-force/} accessed 6 September 2019.

102 Cook, ‘Southeast Asian perspectives on UN peacekeeping’, p. 172.

103 See Indonesia Ministry of Foreign Affairs, ‘Indonesia and the United Nations Peacekeeping Mission’ (2018), available at: {https://kemlu.go.id/portal/en/read/91/halaman_list_lainnya/indonesia-and-the-united-nations-peacekeeping-mission} accessed 7 September 2019; United Nations Development Programme in Malaysia Singapore & Brunei Darussalam, ‘Enhancing And Strengthening Civil And Military Coordination During Peacekeeping Operations’ (n.d.), available at: {http://www.my.undp.org/content/malaysia/en/home/ourwork/crisispreventionandrecovery/successstories/74732_Peacekeeping.html} accessed 3 September 2019.

104 Tang, ‘Asean peacekeeping force?’

105 Ibid.

106 Lina A. Alexandra, ‘Consider peacekeeping operations in Myanmar’, The Jakarta Post (22 September 2017).

107 Editorial, ‘Don't ignore the Rohingya’, Bangkok Post (2 November 2019), available at: {https://www.bangkokpost.com/opinion/opinion/1785294/dont-ignore-the-rohingya} accessed 6 July 2020.

108 Heng, Yee-Kuang, ‘Confessions of a small state: Singapore's evolving approach to peace operations’, Journal of International Peacekeeping, 16:1–2 (2012), p. 134CrossRefGoogle Scholar; Thalang and Siraprapasiri, ‘ASEAN's (Non-)role’, pp. 131–55.

109 Booth, and Wheeler, , The Security Dilemma: Fear, Cooperation, and Trust in World Politics (Basingstoke: Palgrave Macmillan, 2008), pp. 234–57Google Scholar.