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.