The Rebalance in Southeast Asia: Not About Containment

During the first two months of this year, the United States stepped up its diplomatic engagement in Southeast Asia in support of the Obama Administration’s policy of rebalancing towards the Asia-Pacific. Assistant Secretary of State for East Asia and the Pacific, Daniel Russel, visited four countries in late January: the Philippines, Malaysia, Thailand and Cambodia.

On his return to the U.S. Russel addressed the Washington Foreign Press Center on the Administration’s priorities in the East Asia and Pacific region on February 4. Nine days later he hosted the 3rd United States-Singapore Strategic Partnership Dialogue in Washington on February 13.

Meanwhile, Assistant Secretary of State for Political-Military Affairs Puneet Talwar attended the 7th Vietnam-United States Political, Security and Defense Dialogue in Hanoi from January 22-23. United States diplomatic representatives also attended the first Extraordinary Meeting of the Friends of the Lower Mekong in Pakse, Laos on February 2.

Rebalancing and Domestic Issues

Russel’s visit to Southeast Asia underscored the salience of domestic issues as points of friction in bilateral relations. For example, implementation of the 2014 Philippines-United States Enhanced Defense Cooperation Agreement (EDCA) has been put on hold until legal petitions to the Philippine Supreme Court are heard.
U.S.-Philippines defense cooperation also has been bedeviled by public anger over the U.S. invocation of the 1998 Visiting Forces Agreement to prevent a U.S. Marine from appearing in court on allegations that he murdered a Filipino transgender woman.

Thai-U.S. relations remained strained by Washington’s disapproval of the May 2014 military coup that overthrew a democratically elected government and the slow return to elected civilian rule. The U.S. has not appointed an ambassador to Thailand since the coup.

In a public address at the Institute of Security and International Studies, Chulalongkorn University, Russel called for the lifting of martial law. He also bluntly remarked that impeachment of former Prime Minister Yingluck Shinawatra, coupled with criminal charges against her, gave the international community “the impression that these steps could in fact be politically driven.” Thai Prime Minister Prayuth Chan-ocha responded by stating he was “saddened” by these remark and added “the U.S. does not understand the way we work.” The Foreign Ministry called in the U.S. chargé d’affairs to clarify Russel’s remarks and to explain the Thai government’s point of view.
In Cambodia, Russel met with government officials, leaders of the opposition and NGOs. In a roundtable with the Cambodian media Russel acknowledged that some progress had been made on the political front in terms of agreements reached between the government of Prime Minister Hun Sen and the opposition Cambodia National Rescue Party (CNRP).

Russel also called for “meaningful and sustained reform in the political sphere” and mentioned in particular the Beoeung Kak Lake case (where CNRP members were arrested for peacefully protesting) and land issues. He also called for an improvement in human rights and greater transparency of the electoral process.

Beyond Political, Security and Defense Issues

Russel’s visit also highlighted that U.S. rebalancing was a comprehensive multifaceted policy that went beyond military and defense issues to include diplomatic engagement, non-traditional security concerns, economic relations and people-to-people ties with regional states. 

The Philippines

The main purpose of Russel’s two-day visit to Manila was to attend the fifth annual Philippine-U.S. Bilateral Strategic Dialogue along with Assistant Secretary for Defense David Shear. The host side was represented by Foreign Affairs Under Secretary Evan Garcia and Defense Under Secretary Pio Lorenzo Batino.

According to Garcia, “we covered virtually the entire range of our bilateral relations.” He singled out three areas: joint cooperation to ensure that Philippine economic development continued; increased interoperability and exchanges between defense departments and shared concerns over destabilizing activities in the South China Sea; and cooperation to meet the challenges of transnational crime, climate change and cybercrime.

Russel emphasized “that our rock-solid commitment to the Philippines and to the Mutual Defense Treaty stands.” Russel said that both countries would seek to “broaden our trade and investment and energy collaboration.”

Batino underscored that the Bilateral Security Dialogue had developed “clearer direction for the Mutual Defense Board and the Security Engagement Board to prioritize high-value exercises that would focus on maritime security, maritime domain awareness, and humanitarian assistance and disaster relief (HADR).”

Shear echoed these priorities and observed that both sides “discussed what we can do together in multilateral fora.” He looked forward to implementing the EDCA “as soon as the Philippine judicial process is complete.”

South China Sea issues loomed large. When asked by the media about Chinese land reclamation activities, Russel responded: “It’s true that the Chinese have a number of projects underway in the South China Sea in which they’re reclaiming land in shoals and rocks in sensitive areas whose sovereignty is contested.” He added that “no party should take steps that raise tensions” and “we think there is a powerful case to be made for the maximum exercise of restraint.”

Batino offered the view that Chinese land reclamation activities “continue to be of serious concern for the Philippine defense and military establishments.” While Garcia noted that “the massive reclamation by China in the South China Sea is a clear violation of what we agreed in the DOC (Declaration of Conduct of Parties in the South China Sea).”

The media conference ended with a discussion of efforts to modernize the Armed Forces of the Philippines. Batino noted that the “modernization program prioritizes the procurement of modern defense equipment that would cater to our security threats, for territorial defense, maritime security, including of course HADR or disaster relief.” Shear responded, “we strongly support Philippines’ efforts to modernize its military. The U.S. has provided over 300 million dollars in military-to-military related assistance since 2001. We will provide 40 million dollars in foreign military financing” in fiscal year 2015.

Malaysia

Russel’s next stop was Kuala Lumpur where he held wide-ranging discussions with the Secretary General of the Foreign Ministry and the ministers for Defense, Home Affairs, and Youth and Sport. Russel also met with members of Parliament and representatives of civil society “to hear directly from citizens about their views on universal principles of human rights and civil rights, their views on the U.S.-Malaysia relationship, and their views on the economy.”

Russel noted at a roundtable with the Malaysian media that his visit was “driven by two things” – Malaysia’s role as Chair of the Association of South East Asian Nations (ASEAN) for 2015 and Malaysia’s membership as a non-permanent member on the UN Security Council for a two-year period commencing in 2015. Russel said he came to Kuala Lumpur “to understand Malaysia’s objective and priorities for ASEAN 2015 and to try to identify ways that the U.S. can continue to build a strong relationship of cooperation with ASEAN.” 

Five major issues featured in Russel’s consultations with Malaysian officials: advanced preparations for President Obama’s visit to Kuala Lumpur to attend the ASEAN-U.S. Leaders’ Meeting and East Asia Summit; economic issues associated with the ASEAN Economic Community and Trans Pacific Partnership (TPP); maritime security issues in the South China Sea; radical violent extremism; and engagement with youth.

When Russel met with the Malaysian media they quoted recent remarks by Prime Minister Najib Razak that the TPP contained “certain terms and conditions that we cannot accept.”  Russel responded by saying, “I have a great deal of optimism that the agreement will conclude soon. Certainly this year, because…the logic is so strong.”

Russel also noted in remarks to the press that “U.S.-Malaysia defense cooperation is a priority for both countries… particularly true given the tensions in the South China Sea.”

On maritime security, Russel observed that there were “many dimensions” to the agenda shared by the U.S. and Malaysia including HADR, maritime safety, preservation of the marine ecosystem and the management of fisheries and wildlife. At the same time, however, he noted, “there are also significant tensions (in the South China Sea) driven by the behavior of parties and the inability of claimants to resolve disputes and differences over their territorial claims” where Malaysia was a claimant state.

Russel presented the standard U.S. policy line of not taking sides in South China Sea sovereignty claims, emphasizing that disputes must be solved peacefully and “where possible” resolved through diplomacy, and U.S. opposition to “coercion or retaliation by economic or other means” and “any bullying by bigger countries against smaller countries.”

Russel then added these pointed comments in response to Chinese criticism that the U.S. was not neutral in its South China Sea policy:

“Where we are not neutral, where we are very strong and outspoken, is in defending universal principles, universal law, and accepted norms… we also accept and respect the right of any claimant to use international legal mechanisms, like the Tribunal of the Law of the Sea, or others, such as the International Court of Justice, to address and to resolve outstanding issues.”

Russel concluded his remarks on a positive note, he hoped “Malaysia will be a model for the responsible behavior of all claimants” and that under Malaysia’s chairmanship of ASEAN a binding Code of Conduct (COC) in the South China Sea would be concluded in 2015.

Thailand

Russel’s third stop was Bangkok where he held discussions with Deputy Prime Minister and Foreign Minister General Tanasak Patimapragorn, former prime ministers Yingluck Shinwatra and Abhisit Vejjajiva, university students and members of civil society.

As noted above, these bilateral consultations were clouded by continuing official U.S. disapproval of the 2014 military coup. In remarks at Chulalongkorn University, Russel noted with respect to the annual Cobra Gold multinational military exercise co-hosted with Thailand, that the U.S. “re-calibrated and scaled (down) appropriately” its participation in this year’s exercise. He repeated these remarks to the Thai press: “in the aftermath of the coup, we scaled down and refocused the Cobra Gold exercise” on humanitarian and disaster relief.

Cobra Gold 2015, the world’s largest multinational military exercises, commenced on February 9 with the participation of 13,000 personnel from twenty-four nations. The U.S. contributed 3,600 soldiers.

It was clear from media reporting and remarks by Russel that U.S.-Thai relations, and defense relations in particular, were in a holding pattern. Russel noted in public remarks “without a doubt the coup was a setback to U.S.-Thai relations… we have made adjustments and the coup in May had an impact on our relationship.”

Russel told the Thai media, “what will ultimately allow the U.S.-Thai relationship to reach its full potential will be the restoration of a credible, democratically elected civilian government.” According to Russel, one of the main messages he brought to all his meetings with government officials, political parties, and civil society, “is that only an inclusive process, a process that allows each segment, not just a few, but each segment of Thai society to feel that their voice is being heard and that they have a role to play in designing the new constitution or the next government.”

Cambodia

Russel’s last stop was Phnom Penh where he met with acting Foreign Minister Ouch Borith; Kem Sokha, vice president of the opposition Cambodia National Rescue Party; and representatives of civil society and Cambodian NGOs. Russel also presented an address to the Cambodian Institute for Cooperation and Peace (CICP) and held a roundtable with the Cambodian media.

The main purpose of Russel’s visit was to press Cambodia’s political leaders and opposition to continue to carry out political reforms. In his address to the CICP Russel noted that “the agreement between ruling and opposition parties was an important first step for reform… And both major parties acknowledge the importance of delivering on the people’s call for meaningful reform. The important thing is not to let up now! Both sides should keep focused on this priority.”

Russel made the argument that the failure to implement democratic reforms could have an adverse impact on foreign investors and thus damage Cambodia’s economy. To give weight to this assessment Russel stated that “the United States isn’t just Cambodia’s largest single-country export market; we’re also a major source of private investment.” Russel separately told a roundtable with the Cambodian media that, “international investors won’t choose Cambodia if, for example, the court and the legal infrastructure isn’t reliable.”

When asked by the press what commitments he had made to Cambodian officials, Russel replied, “the United States is committed to working with them, with civil society, and with the people of Cambodia to advance the cause of reform and universal values such as human rights.

Vietnam

While Russel was visiting Malaysia, Vietnam and the U.S. were holding their 7th Political, Security, and Defense Dialogue. Vietnam was represented by officials from the ministries of Foreign Affairs, National Defense and Public Security. The U.S. was represented by officials from the departments of State, Defense, Justice, Homeland Security, the U.S. Coast Guard and U.S. Pacific Command.

According to a joint press statement issued after the dialogue, both sides exchanged ideas on promoting bilateral “cooperation in regional and global mechanisms, including those in which ASEAN plays a central role.” The agenda for the dialogue included maritime security, HADR, nonproliferation, counter-narcotics, cyber-security, UN peacekeeping operations, and law enforcement issues.

The two countries discussed the situation in the South China Sea and “reaffirmed their shared interest in maintaining peace, stability, freedom of navigation and overflight, and resolving disputes through diplomatic and peaceful measures, without unilateral and provocative actions, in accordance with international law, including as reflected in the UN Convention on the Law of the Sea.”

Finally, both sides decided to further the objectives of the 2011 Memorandum  of Understanding (MOU) on Advancing Bilateral Defense Cooperation by continuing to cooperate in maritime law enforcement and developing HADR and search and rescue capabilities. They also agreed to continue their efforts at MIA accounting, dioxin (Agent Orange), remediation, and disposal of unexploded ordnance.

On January 23, Assistant Secretary of State Talwar delivered an address to a conference on Vietnam-U.S. relations hosted by the Diplomatic Academy of Vietnam. His remarks addressed three main areas of cooperation: humanitarian issues, trade and economic ties, and defense and security relations.

Talwar argued that U.S.-Vietnam security and defense cooperation “underpins our economic relationship, our humanitarian work and many other areas of cooperation” because “prosperity and security are inseparable.”

Under the security and defense heading, Talwar addressed five main issues: freedom of navigation in the South China Sea; advancing the goals of the 2011 MOU particularly maritime security; reaching a binding COC for the South China Sea; countering the proliferation of weapons of mass destruction; and law enforcement and the justice sector.

Talwar concluded by emphasizing that, “broadening and deepening our partnership with Vietnam is a critical pillar of the rebalance.” He called for continued cooperation in five areas: peacekeeping, unexploded ordnance, human rights, trade and investment, and “building a more stable and secure Southeast Asia.”

Lower Mekong Initiative

On February 2, Friends of the Lower Mekong, a donor coordination group, met for the first time with the countries of the Lower Mekong (Myanmar, Thailand, Laos, Cambodia and Vietnam) in an extraordinary meeting. The purpose of the meeting was “to discuss the connection between water resources, energy needs, and food security.”

The U.S. was represented by Counselor Tom Shannon and Senior Adviser to the Secretary of State, Ambassador David Thorne. The importance of this meeting was underscored by the publication of a hard-hitting opinion-editorial article by Secretary of State John Kerry published on February 2 in Foreign Policy.

In the article, Kerry argued:

“the Mekong is under threat. All along its 2,700 miles, the growing demand for energy, food, and water is damaging the ecosystem and jeopardizing the livelihoods of 240 million people. Unsustainable development and the rapid pace of hydropower development are undermining the food and water needs of the hundreds of millions of people who depend on the river.”

Prior to the extraordinary meeting, the United States and Laos co-hosted a meeting of senior officials from the U.S., European Union, five Lower Mekong countries, the Asian Development Bank and private sector in Pakse. The purpose of this meeting was “to work on a blueprint for a sustainable future.” What was left unsaid was the emerging conflict of interest between Laos and its downstream neighbors over the planned construction of the Don Sahong Dam on a main channel on the Mekong.

The U.S. took the leadership role in announcing several new initiatives at the extraordinary meeting. First, it unveiled its Sustainable Mekong Energy Initiative to redirect foreign investment into renewable energy. Second, the U.S. Army Corps of Engineers announced that it would provide technical assistance on hydropower management. Third, the U.S. joined with the Asian Development Bank and World Bank to develop a national energy grid for Laos. Finally, the U.S. government in association with Japan, Australia, the Asian Development Bank and the World Bank agreed to jointly develop a Regional Impact Assessment Training Center to be located in Vietnam.

Singapore

On February 13 the United States hosted the 3rd U.S.-Singapore Strategic Partnership Dialogue in Washington, D.C. The U.S. was represented by Russel and Singapore was represented by the Permanent Secretary of the Ministry of Foreign Affairs Chee Wee Kiong. The dialogue flagged four areas for future cooperation. The first area included economic, investment and trade issues. Both sides reaffirmed their agreement to achieve a high-standard Trans Pacific Partnership Agreement and both agreed on the importance of supporting the Asia Pacific Economic Cooperation (APEC) process.

Second, the two countries agreed to renew their bilateral MOU on the Singapore-U.S. Third Country Training Program. Over the past three years this program has trained more than 400 Southeast Asian officials in six areas: HADR, trade facilitation, energy efficiency, urban transport planning, hydrology and road management.

Third, both sides agreed to continue cooperation under their bilateral Strategic Framework Agreement adopted a decade ago. They agreed to continue the Law Enforcement and Homeland Security and Safety Dialogue, and step up cooperation on cyber-security and countering violent extremism. The U.S. and Singapore are jointly working together to manage a Global Coalition to Counter ISIS.

A Demonstrated Multifaceted Approach

U.S. diplomatic engagement with Southeast Asia over the past two months illustrates the multifaceted nature of the Obama Administration’s policy of rebalancing towards the Asia-Pacific. During Assistant Secretary Daniel Russel’s visit to four Southeast Asian countries the emphasis was on promoting economic development primarily through the TPP, the importance of democratic values and institutions to stability at both national and regional levels, and the role of security and defense cooperation as the foundation for these objectives. Russel reiterated long-standing U.S. policy towards the South China Sea and U.S. support for the efforts of claimant states to seek a resolution to their disputes through peaceful means, either through diplomatic channels or claims to international legal institutions.

The above snapshot of engagement activities demonstrates that the U.S. policy of rebalancing is not primarily directed at containing China but at addressing larger and deeper security issues affecting the entire region, such as non-traditional security issues; maritime security; promoting the well-being of people inhabiting the Lower Mekong through sustainable economic and energy development; ensuring political stability through transparent, inclusive democratic institutions; and resolving South China Sea territorial disputes peacefully through recourse to international law.