Outcomes of the 2024 ASEAN-Australia Special Summit

02 April 2024

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Dr Vu Lam
Foreign Affairs, Defence and Security

Executive summary

The 2024 ASEAN-Australia Special Summit, commemorating the 50th Anniversary of ASEAN-Australia Dialogue Relations, was held in Melbourne on 4–6 March, with Lao PDR chairing ASEAN in 2024 and Timor-Leste participating as an observer.
The leaders released a Leaders’ Vision Statement and the Melbourne Declaration, outlining key areas of further cooperation on trade, climate change, maritime cooperation and leadership development.
The summit reinforced foundational ASEAN principles of mutual respect, sovereignty, non-interference and adherence to international law, particularly the 1982 UNCLOS and the ASEAN Outlook on the Indo-Pacific (AOIP), underlining the commitment to regional peace, security and prosperity.
The summit adopted moderate language on notable global and regional issues, reflecting diplomatic caution and consensus-building among diverse participating states, while reiterating commitments to international law and regional stability.
Economic cooperation was a focus, with Australia committing significant investments, including A$2 billion for the Southeast Asia Investment Financing Facility, to enhance trade, infrastructure and clean energy in ASEAN countries.
Australia committed A$64 million to environmental projects, including marine conservation and allocated A$222.5 million to the Mekong-Australia Partnership for water security, climate action and regional development, demonstrating a broad investment in environmental sustainability.
The summit placed a strong emphasis on people-to-people links and future leadership, announcing the establishment of the ASEAN-Australia Centre and expanding educational scholarships and fellowships to strengthen cultural and educational ties.
Overall, the summit underscored a shared commitment to addressing regional challenges, promoting economic growth and fostering closer ties. Translating key summit goals into tangible outcomes will require detailed implementation plans and feasible funding.

Introduction

Leaders from the Association of Southeast Asian Nations (ASEAN), Australia and Timor-Leste gathered in Melbourne from 4 to 6 March 2024 for the ASEAN-Australia Special Summit, marking the 50th Anniversary of ASEAN-Australia Dialogue Relations. Lao PDR holds the ASEAN chair in 2024. Timor-Leste participated as an ASEAN Observer, while the Myanmar junta leader was not in attendance, following ASEAN’s decision to exclude Myanmar from regional gatherings since the 2021 military coup and ongoing conflict in the country.

This assembly marked a significant juncture, reflecting on the past 5 decades of cooperation and charting a course for future collaboration under the Comprehensive Strategic Partnership (CSP) initiated in 2021. For a comprehensive summary of the context around the summit, refer to the Parliamentary Library research paper, The 2024 ASEAN-Australia Special Summit.

The summit’s agenda covered a wide range of topics, culminating in a Leaders’ Vision Statement and the Melbourne Declaration that serve to reaffirm the long-established commitment to promoting an open, inclusive and transparent region with ASEAN at its centre. The Melbourne Declaration contains 55 points, representing a significant increase from the 29-point 2018 Sydney Declaration. It reflects the summit’s 4 main themes: trade and investment; climate and clean energy transition; maritime cooperation; and fostering emerging leadership. On this occasion, Australia also announced several new and revised initiatives to advance collaboration with ASEAN members. Coinciding with the summit, Australia upgraded its relations with Vietnam to a CSP and established a Comprehensive Partnership with Laos.

This research paper analyses the key outcomes of the summit, focusing on both established talking points and new areas of discussion.

One key takeaway is the summit’s microcosm of the complexities of international diplomacy. Issues such as the ongoing humanitarian crisis in Myanmar or the region’s vulnerability to cyber threats received relatively limited attention in the official declarations. Yet, while the outcomes may appear modest compared to the ambitious pre-summit agenda, achieving consensus among a diverse range of nations with varied interests is a significant accomplishment in itself. This is evidenced by the reiteration of established positions on core issues, alongside nuanced additions reflecting evolving regional dynamics. The inclusion of new initiatives, such as the Southeast Asia Investment Financing Facility, further underscores the willingness of ASEAN and Australia to explore new avenues for collaboration.

However, it remains to be seen how these commitments will translate into tangible results. For instance, the renewed focus on climate and clean energy transitions will require feasible funding mechanisms and technology transfers to move beyond general statements of support.

Foundational principles of bilateral relations

The leaders reaffirmed their commitment to long-standing principles underscoring ASEAN’s foundation and its relations with external states. Central to ties is:

[the] mutual respect for the principles of sovereignty, territorial integrity, equality, non-interference and political independence of all nations as espoused in the Charter of the United Nations, the ASEAN Charter, the Treaty of Amity and Cooperation in Southeast Asia (TAC), the 1982 United Nations Convention on the Law of the Sea (UNCLOS), as well as the ASEAN Outlook on the Indo-Pacific (AOIP). (point 5).

Throughout the statement and declaration, the 1982 UNCLOS is highlighted as a critical framework, setting out the legal structure for all activities in the oceans and seas, emphasising its strategic importance for national, regional and global action in the marine sector. There is a shared commitment to conserving and sustainably using marine resources in accordance with international law, while addressing challenges such as biodiversity loss, marine pollution and illegal, unreported and unregulated fishing (IUU).

Meanwhile, the AOIP, since its adoption in 2019, has served as ASEAN’s framework for promoting cooperation in the Indo-Pacific. Consistent with the AOIP, the leaders reaffirmed ASEAN centrality in shaping an open, inclusive, transparent and rules-based regional architecture. This commitment will be actively pursued through ASEAN-led mechanisms such as the East Asia Summit, the ASEAN Regional Forum and the ASEAN Defence Ministers’ Meeting Plus (ADMM-Plus). Building on the 2021 CSP, the leaders pledged to further strengthen bilateral relations. This will be guided by the Plan of Action to Implement the ASEAN-Australia Strategic Partnership (2020–24), its annex and other accompanying agreements.

It should be noted that ASEAN centrality has been frequently confirmed as a core principle in ASEAN-Australia relations. This principle asserts that ASEAN should be at the core of regional frameworks and initiatives, promoting dialogue and cooperation among its member states and with external partners. However, the efficacy and impact of ASEAN centrality are subjects of ongoing debate among scholars, policymakers and analysts.

Critics of ASEAN centrality point to several issues that challenge its effectiveness. One of the primary concerns is the organisation’s consensus-based decision-making process, which can lead to delays and a lack of decisive action in times of crisis. This approach, while ensuring that all member states have a say in ASEAN’s direction, can also result in watered-down resolutions and difficulty in responding swiftly to emerging challenges. Furthermore, the diversity of political systems, levels of economic development and foreign policy priorities among ASEAN members can complicate cohesive action. Also, the increasing rivalry between major powers, especially the US and China, puts ASEAN’s central position under pressure as member states navigate their bilateral relationships with these global giants.

Despite these criticisms, there is a broad consensus on the valuable contributions of ASEAN centrality to regional stability and an inclusive regional framework. ASEAN’s role in promoting dialogue and cooperation has facilitated peace and stability in Southeast Asia (SEA). For a region that has historically been marred by conflict and division, there has been no major military conflicts among ASEAN members since its establishment in 1967. Through ASEAN-led mechanisms mentioned above, ASEAN has successfully brought together diverse actors to discuss security issues, economic cooperation and other regional challenges. These platforms have allowed for the relatively effective management of disputes, including territorial disputes among ASEAN members, enhanced mutual understanding and fostered a spirit of collaboration among countries across the Indo-Pacific region.

Moreover, ASEAN centrality has been instrumental in integrating SEA economies, promoting economic growth and development through initiatives like the ASEAN Economic Community. By working together, ASEAN member states have been able to attract investment, negotiate trade deals and improve the livelihoods of their populations.

Regional security and stability

The summit placed a strong emphasis on the significance of regional security and stability. The declaration highlights a collective dedication to principles that ensure peace, uphold the rule of law and facilitate a cooperative approach to resolving disputes. Throughout the declaration are multiple confirmations of adherence to international law, especially the 1982 UNCLOS.

Similar to the 2018 summit, the 2024 summit’s emphasis on maritime cooperation, rather than a narrower focus on maritime defence, reflects a strategic approach. Maritime cooperation encompasses a broader range of priorities beyond defence matters, including economic development, environmental protection and combating transnational maritime threats like piracy and illegal fishing. By framing discussions in this broader context, the summit aimed to find common ground and promote inclusive collaboration within a region facing complex geopolitical dynamics.

Additionally, ASEAN’s tradition of consensus-based decision-making often favours cooperative approaches over potentially divisive topics. Some ASEAN members may have differing threat perceptions or sensitivities regarding overtly defence-oriented cooperation. Focusing on maritime cooperation allows nations to address shared security concerns while adhering to ASEAN’s principles of dialogue and partnership.

As per the declaration, the ADMM-Plus remains the key framework and platform for strengthening defence cooperation focusing on ‘confidence building and conflict prevention, as well as capacity building’ (point 12), though the declaration stops short of offering additional specifics.

Envisaging a resilient and prosperous Southeast Asia, achieved through ASEAN-led collaboration on shared challenges, the leaders also recognised the importance of looking beyond SEA and extending cooperation with other partners as part of the wider Indo-Pacific region. A new point compared to the 2018 declaration, this broader engagement is seen as crucial for promoting an open, stable, prosperous and rules-based Indo-Pacific region, reflecting the AIOP and Australia’s foreign policy priorities. Specifically, the leaders welcomed the commitment to deepening connections with the Pacific Islands Forum and the Indian Ocean Rim Association, denoting a comprehensive approach to regional diplomacy.

Another new point compared to the Sydney Declaration is the reiteration of ASEAN-Australia’s commitment to preserving SEA as a nuclear-free zone. This emphasis sends a symbolic signal that aligns with broader ASEAN concerns – and the 1995 Treaty of Southeast Asia Nuclear Weapon-Free Zone – regarding regional security and the potential proliferation of nuclear weapons. But more directly, it also aims to address ASEAN’s reservations about AUKUS. Concerns about the partnership’s agreement to provide Australia with nuclear-powered submarines include fears of a potential nuclear arms race, escalating military tensions and the impact on regional stability.

Some reports suggest that the declaration adopts subdued language to address several ongoing regional and global challenges, due to the diverse viewpoints among the leaders. Despite lacking detailed courses of action, the declaration signifies ongoing attention to and diplomatic alignment on these issues among regional leaders.

In relation to the Myanmar crisis, the leaders expressed their support for sustained engagement efforts involving external partners like the UN to fully implement the ASEAN Five-Point Consensus (5PC), aligning with decisions made at the 42nd ASEAN Summit. However, the lack of progress in implementing this framework has raised questions about the potential for finding a near-term solution to the crisis.

In September 2023, ASEAN announced a ‘troika’ system for 2024, comprising Indonesia (then-current chair), Laos and Malaysia, to lead its efforts on the Myanmar crisis and push for the implementation of the 5PC. Malaysia’s inclusion in the troika, considering its chairmanship in 2025, potentially suggests an ASEAN expectation that the crisis will persist for several years. Further reinforcing this view, the Philippines has agreed to assume the 2026 chairmanship in place of Myanmar. This may signify ASEAN’s anticipation that the Myanmar junta will not be willing to comply with the 5PC by 2026, despite reports of its imminent collapse.

The summit leaders also addressed a range of global issues. Regarding North Korea’s missile testing, they reiterated their call for peaceful dialogue and denuclearisation. The effectiveness of this approach remains limited. Additionally, they condemned the aggression against Ukraine and emphasised the importance of adhering to international law, though a demand for Russia’s withdrawal from Ukraine was removed from the final declaration.

Regarding the humanitarian crisis in Gaza, the leaders urged a ceasefire and expressed support for UN efforts, including those of the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA). The mention of UNRWA is notable, standing in contrast to Australia’s suspension of funding for UNRWA due to allegations that some of its staff were involved in the 7 October attack on Israel. At the time of the summit, Australia was facing calls from ASEAN members, among others, to reinstate the funding in light of the worsening humanitarian crisis for the Palestinian population. On 15 March 2024, Australia announced it would resume its funding for UNRWA.

The South China Sea (SCS) remains a point of contention. The declaration reaffirms a legal-diplomatic approach centred on the 1982 UNCLOS and negotiations for a Code of Conduct with China. Notably, the statement avoids explicit criticism of China’s assertive actions in the SCS and the Taiwan Strait. This reflects a longstanding ASEAN approach aimed at managing disputes while navigating the diverse viewpoints within the organisation. However, recent incidents have escalated tensions in the region, particularly between the Philippines and China. In response, Vietnam has called for all parties to exercise restraint.

Maritime cooperation

At the summit, the leaders stressed the importance of working together on maritime issues. They recognised the need to address challenges and seize opportunities in the region’s seas and oceans. The summit featured the Maritime Cooperation Track, which sought to deepen the collaborative efforts on significant maritime themes identified within critical frameworks such as the AOIP, the ASEAN Maritime Outlook and the ASEAN Blue Economy Framework. This focus underscored the strategic importance of Southeast Asia’s maritime areas, which are vital for global trade, food, energy security and marine biodiversity, highlighting the critical role that these waters play in the region’s peace, stability and prosperity.

Key discussions during the summit revolved around enhancing practical maritime cooperation, with the Maritime Cooperation Forum playing a central role. This forum brought together officials and non-governmental experts from ASEAN member states, Timor-Leste, the ASEAN Secretariat and Australia to foster dialogue on strengthening maritime governance, security efforts and addressing environmental challenges affecting marine ecosystems. The aim was to promote sustainable economic activities within the marine sector, alongside other key objectives such as maritime governance and security.

To support maritime cooperation, Australia will invest A$64 million over 4 years, including A$40 million in new funding, to enhance Southeast Asia Maritime Partnerships. This initiative focuses on capacity-building and technological sharing, with the aim of supporting coral reef conservation, maritime law enforcement and domain awareness, geospatial mapping and marine protection. Targeting civil aspects of maritime cooperation, these efforts aim to contribute to the security and prosperity of the region through peaceful and collaborative means, consistent with the priorities of SEA countries.

Economic cooperation for prosperity

The leaders reached an agreement to strengthen the economic relationship between ASEAN and Australia, prioritising sustainable and inclusive growth. This demonstrates their understanding of the interconnectedness of the region‘s economies. They committed to increase trade and investment, promote greater business collaboration and foster a robust regional economy capable of facing future challenges.

Crucial to the joint economic agenda is a focus on leveraging existing frameworks like the ASEAN-Australia-New Zealand Free Trade Area and the Regional Comprehensive Economic Partnership to expand economic opportunities across the region. The leaders also welcomed Australia’s Southeast Asia Economic Strategy to 2040, which will serve as a blueprint for identifying and capitalising on opportunities to strengthen economic ties and shared prosperity.

Acting on key recommendations of the SEA Strategy, Australia will commit A$2 billion for the Southeast Asia Investment Financing Facility, designed to catalyse investment in crucial sectors like infrastructure and clean energy. Complementing this, an investment of A$70.2 million will establish Deal Team hubs across ASEAN, bringing together experts from Austrade, the Department of Foreign Affairs and Trade (DFAT) and Export Finance Australia to spearhead economic collaborations. An additional A$140 million over 4 years is earmarked for extending the Partnerships for Infrastructure Program (P4I), which is set to play a central role in Australia’s support for regional infrastructure development. P4I helps ASEAN nations build their capacity in infrastructure planning and development, fosters knowledge sharing, facilitates connections with financing partners and promotes regional integration through better infrastructure.

To further cement economic connections, 10 Business Champions will be appointed to navigate and strengthen commercial ties between Australia and ASEAN economies. Innovation in technology export services is also on the agenda, with the launch of regional technology ‘Landing Pads’ in Jakarta and Ho Chi Minh City, providing Australian businesses with essential on-the-ground support.

Additionally, initiatives to enhance visa accessibility for Southeast Asia, including extending Business Visitor visas from 3 to 5 years and expanding the 10-year Frequent Traveller stream to eligible ASEAN member states, signify a commitment to fostering mobility and deepening economic integration.

Climate and clean energy transition

The summit highlights a strengthened resolve among ASEAN members and Australia to confront climate change and bolster environmental sustainability. Compared to the Sydney summit, this represents an advancement in regional discussions, placing an unprecedented emphasis on collective action against environmental crises, alongside traditional areas of focus such as regional security and economic cooperation.

The declaration reflects the importance of achieving socio-economic benefits alongside the transition to a green economy. This involves sustainable development practices that mitigate environmental impacts while creating economic opportunities in green trade, jobs and investment. Notably, Australia’s commitment to the ASEAN-led Blue Economy Framework highlights joint efforts in promoting the sustainable use of marine resources for economic growth. Australia’s funding for Southeast Asia Maritime Partnerships directly supports this endeavour.

Besides the Southeast Asia Investment Financing Facility, Australia also announced the launch of a A$6.9 million Energy Cooperation Package under the Aus4ASEAN Futures Initiative. This package aims to support the ASEAN Centre for Energy and the establishment of the ASEAN Centre for Climate Change. Australia also committed a A$10 million Climate and Clean Energy Window to facilitate knowledge-sharing and capacity-building in climate change mitigation. These initiatives, aligning with the ASEAN Strategy for Carbon Neutrality, demonstrate Australia’s commitment to supporting ASEAN’s goals for sustainable development and collaborative efforts in addressing climate change challenges.

During the summit, Foreign Minister Penny Wong also announced the second phase of the Mekong-Australia Partnership (MAP), amounting to A$222.5 million, as a way to reinforce Australia’s commitment to the Mekong subregion. For context, the first phase of the MAP was launched in November 2020 and backed with A$232 million to enhance the subregion’s resilience and support inclusive, sustainable growth. According to DFAT, the MAP’s flexibility allows it to respond to shared regional, transboundary challenges and emerging needs, supporting locally owned activities. Australia, through the MAP, collaborates with Mekong partners on various fronts, including improving water security, responding to climate change, enhancing economic resilience against external shocks, combating transnational crime and strengthening subregional leadership, institutions and partnerships.

The MAP operates in a landscape shaped by other major players in the region. China’s Lancang-Mekong Cooperation, an important component of the Belt and Road Initiative, stands in contrast with its strong emphasis on infrastructure development and economic integration. This model has raised concerns about potential debt burdens for Mekong nations. Japan’s strategic engagement with the Mekong region, such as through the Japan-US-Mekong Power Partnership (JUMPP), on the other hand, shares more similarities with the MAP, focusing on capacity building, infrastructure and environmental protection. However, JUMPP emphasises renewable energy and high-quality power infrastructure. The US Agency for International Development (USAID) contributes through programs, such as the Mekong-US Partnership, emphasising good governance, environmental protection and private sector investment.

While differing in funding scale and specific priorities, the MAP’s focus on local ownership, sustainability and complementing existing regional frameworks helps define its unique approach within this complex web of Mekong development initiatives.

The initiatives to support the clean energy transition and practical maritime cooperation, including the next phase of the MAP and the enhancement of Southeast Asia Maritime Partnerships, reflect Australia’s broader regional engagement strategy. These efforts are designed to address shared challenges, such as water security, climate change and transnational crime, while contributing to the security and prosperity of the SEA region.

Nurturing people-to-people links and future leadership

The summit highlighted a strong focus on enhancing people-to-people ties, recognising their crucial role in fostering understanding, respect and friendship between ASEAN and Australia. Central to this commitment is the establishment of the ASEAN-Australia Centre in Canberra, opening in July 2024. The aim of this hub is to promote cultural literacy, as well as business, educational and community ties, demonstrating the importance placed on these connections for comprehensive cooperation. Australia’s support for Timor-Leste’s ASEAN integration, including English-language training, further demonstrates this commitment.

Practical steps to boost people-to-people exchange include expanding visa accessibility, such as extending the Business Visitor visa and introducing the Frequent Traveller stream. These measures aim to simplify travel between ASEAN countries and Australia, facilitating greater interaction for business, education and tourism.

The Emerging Leaders’ Dialogue, a key part of the summit, brought together 65 next-generation leaders from Australia, ASEAN and Timor-Leste. This platform enabled in-depth discussions on regional challenges and allowed emerging leaders to explore new ideas for accelerating digital transformation, building skills for sustainable development and strengthening regional peace and prosperity.

Underscoring this support are over 75 new Aus4ASEAN scholarships and 55 fellowships. Designed to support the region’s emerging leaders, these opportunities are expected to provide avenues for study that align with the AOIP and deepen ASEAN-Australia connections.

The Australian Government has also announced its support for 38 projects across communities, universities and businesses to strengthen Australia-ASEAN collaborations. These projects, facilitated through the Australia-ASEAN Council and Australia-Indonesia Institute, are diverse. They include youth leadership summits, university collaborations on maritime history and support for accelerating clean energy solutions in ASEAN countries. This targeted funding represents Australia’s investment in the region’s growth, stability and interconnectedness.

Conclusion

The 2024 ASEAN-Australia Special Summit was more than just a symbolic event. It highlighted the strong and evolving partnership between Australia, ASEAN members and Timor-Leste. Leaders reflected on concrete successes in their collaboration while outlining specific ways to enhance regional security, promote sustainable economic development and address issues of shared concern. The adoption of the Leaders’ Vision Statement and the Melbourne Declaration demonstrates their commitment to upholding international law and working together to maintain a stable and prosperous region.

While the summit highlighted positive steps forward, it also underscored the ongoing challenges in navigating a complex geopolitical landscape. Finding consensus on issues such as maritime security, regional tensions and the strategic dynamics of the Indo-Pacific requires continuous dialogue and commitment from all partners. The focus on foundational principles like mutual respect for sovereignty, non-interference and ASEAN centrality, along with specific initiatives in maritime cooperation, climate action and economic partnership, reflects a comprehensive approach to addressing both traditional and emerging challenges. However, translating these principles into concrete actions to address specific disputes will require elaboration. Such initiatives are promising, but their effectiveness will depend on clear implementation plans and feasible funding schemes, including public-private partnerships.

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