ASEAN as network governance: an alternative lens to evaluate policymaking and performance

Background: This article offers a new perspective of ASEAN as network governance (NG) at its core, with a hierarchical organisational structure as its front (hybrid organisation). The works on network forms of organisation and policy network theory (PNT) were used for the analysis.

Methods: Two case studies from the ASEAN Community were selected to show the applicability and effectiveness of NG. They were selected for their prominence and the prevalence of critical comments on their ineffectiveness in promoting ASEAN's integration. A study on how these policies are made and implemented in ASEAN was evaluated using a qualitative research methodology by analysing existing literature.

Results: The findings show ASEAN as a hybrid structure that has helped in two ways critical to ASEAN's survival and relevance. First, the approach provides legitimacy for ASEAN in the international community by purposefully adopting structures similar to the EU without the supranational elements. Second, it highlights ASEAN's goal of asserting its centrality. While adopting a hybrid structure has led to the soft institutionalisation of ASEAN, characterised by a less empowered secretariat, whose member states are the decision-makers and implementors of policies, adopting NG better reflects the underpinnings allowing a more nuanced assessment of its performance. In addition, it opens a pathway to recognising the states' autonomy where the extent of actors' will and interests leads to decision-making and defines ASEAN's performance.

Conclusions: This article demonstrates ASEAN's goal to pursue ASEAN centrality in regional cooperation and institutional arrangements through the alternative approach of NG. NG allows for a nuanced assessment of ASEAN's performance by first highlighting ASEAN's context and history and emphasising the role of member states as decision-makers and implementers of policies. The NG framework has contributed to ASEAN's legitimacy and centrality, fostering regional integration despite its inherent limitations.