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.