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 ROUTLEDGE SECURITY IN ASIA PACIFIC SERIES

Bilateralism, Multilateralism and

Asia-Pacific Security
Contending cooperation

Edited by
William T. Tow and Brendan Taylor
Bilateralism, Multilateralism and
Asia-Pacific Security

Many scholars of international relations in Asia regard bilateralism

and multilateralism as alternative and mutually exclusive approaches to
security cooperation. They argue that multilateral associations such as
ASEAN will eventually replace the system of bilateral alliances that were
the predominant form of US security cooperation with Asia-Pacific allies
during the Cold War. Yet these bilateral alliances continue to be the primary
means of the United States’ strategic engagement with the region. This book
contends that bilateralism and multilateralism are not mutually exclusive,
and that bilateralism is likely to continue strong even as multilateralism
strengthens. It explores a wide range of issues connected with this question.
It discusses how US bilateral alliances have been reinvigorated in recent
years, examines how bilateral and multilateral approaches to specific pro-
blems can work alongside each other, and concludes by considering
how patterns of international security are likely to develop in the region
in future.

William T. Tow is Professor and Head of the Department of International

Relations at the Australian National University.

Brendan Taylor is Associate Professor and Head of the Strategic and

Defence Studies Centre at the Australian National University.
Routledge Security in Asia-Pacific Series
Series Editors
Leszek Buszynski, Strategic and Defence Studies Centre,
the Australian National University, and
William Tow, Australian National University

Security issues have become more prominent in the Asia-Pacific region

because of the presence of global players, rising great powers, and confident
middle powers, which intersect in complicated ways. This series puts forward
important new work on key security issues in the region. It embraces the
roles of the major actors, their defense policies and postures and their
security interaction over the key issues of the region. It includes coverage of
the United States, China, Japan, Russia, the Koreas, as well as the middle
powers of ASEAN and South Asia. It also covers issues relating to envir-
onmental and economic security as well as transnational actors and regional
groupings.

1. Bush and Asia

America’s evolving relations with East Asia
Edited by Mark Beeson

2. Japan, Australia and Asia-Pacific Security

Edited by Brad Williams and Andrew Newman

3. Regional Cooperation and Its Enemies in Northeast Asia

The impact of domestic forces
Edited by Edward Friedman and Sung Chull Kim

4. Energy Security in Asia

Edited by Michael Wesley

5. Australia as an Asia Pacific Regional Power

Friendships in flux?
Edited by Brendan Taylor

6. Securing Southeast Asia

The politics of security sector reform
Mark Beeson and Alex J. Bellamy
 7. Pakistan’s Nuclear Weapons
Bhumitra Chakma

8. Human Security in East Asia

Challenges for collaborative action
Edited by Sorpong Peou

9. Security and International Politics in the South China Sea

Towards a co-operative management regime
Edited by Sam Bateman and Ralf Emmers

10. Japan’s Peace Building Diplomacy in Asia

Seeking a more active political role
Lam Peng Er

11. Geopolitics and Maritime Territorial Disputes in East Asia

Ralf Emmers

12. North Korea’s Military–Diplomatic Campaigns, 1966–2008

Narushige Michishita

13. Political Change, Democratic Transitions and Security in Southeast Asia

Mely Caballero-Anthony

14. American Sanctions in the Asia-Pacific

Brendan Taylor

15. Southeast Asia and the Rise of Chinese and Indian Naval Power
Between rising naval powers
Edited by Sam Bateman and Joshua Ho

16. Human Security in Southeast Asia

Yukiko Nishikawa

17. ASEAN and the Institutionalization of East Asia

Ralf Emmers

18. India as an Asia Pacific Power

David Brewster

19. ASEAN Regionalism

Cooperation, values and institutionalisation
Christopher B. Roberts
20. Nuclear Power and Energy Security in Asia
Edited by Rajesh Basrur and Koh Swee Lean Collin

21. Maritime Challenges and Priorities in Asia

Implications for regional security
Edited by Joshua Ho and Sam Bateman

22. Human Security and Climate Change in Southeast Asia

Managing risk and resilience
Edited by Lorraine Elliott and Mely Caballero-Anthony

23. Ten Years After 9/11 – Rethinking the Jihadist Threat

Arabinda Acharya

24. Bilateralism, Multilateralism and Asia-Pacific Security

Contending cooperation
Edited by William T. Tow and Brendan Taylor
Bilateralism, Multilateralism
and Asia-Pacific Security
Contending cooperation

Edited by
William T. Tow and Brendan Taylor
First published 2013
by Routledge
2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN
Simultaneously published in the USA and Canada
by Routledge
711 Third Avenue, New York, NY 10017
Routledge is an imprint of the Taylor & Francis Group, an informa business
© 2013 selection and editorial material, William T. Tow and Brendan
Taylor; individual chapters, the contributors
The right of William T. Tow and Brendan Taylor to be identified as the
authors of the editorial material, and of the authors for their individual
chapters, has been asserted in accordance with sections 77 and 78 of the
Copyright, Designs and Patents Act 1988.
All rights reserved. No part of this book may be reprinted or reproduced
or utilised in any form or by any electronic, mechanical, or other means,
now known or hereafter invented, including photocopying and recording,
or in any information storage or retrieval system, without permission in
writing from the publishers.
Trademark notice: Product or corporate names may be trademarks or
registered trademarks, and are used only for identification and explanation
without intent to infringe.
British Library Cataloguing in Publication Data
A catalogue record for this book is available from the British Library
Library of Congress Cataloging in Publication Data
Bilateralism, multilateralism and Asia-Pacific security: contending
cooperation / edited by William T. Tow and Brendan Taylor.
p. cm. – (Routledge security in Asia Pacific series; 24)
Includes bibliographical references and index.
1. Security, International – Asia. 2. Security, International – Pacific
Area. 3. National security – Asia. 4. National security – Pacific Area.
5. Asian cooperation. 6. Pacific Area cooperation. 7. Asia – Foreign
relations. 8. Pacific Area – Foreign relations. I. Tow, William T. II. Taylor,
Brendan, 1974–
JZ6009.A75B55 2013
355’.03305 – dc23 2012041357

ISBN: 978-0-415-62580-7 (hbk)

ISBN: 978-0-203-36708-7 (ebk)

Typeset in Times New Roman

by Cenveo Publisher Services
Contents

Figure and tables ix

Contributors x
Preface xii
Abbreviations xv

PART I
Setting the context 1

1 Introduction 3
WILLIAM T. TOW AND BRENDAN TAYLOR

2 Conceptualizing the bilateral–multilateral security nexus 8

BRENDAN TAYLOR

PART II
The nexus and America’s Asian alliances 19

3 Bridging alliances and Asia-Pacific multilateralism 21

AJIN CHOI AND WILLIAM T. TOW

4 Stretching the Japan–US alliance 39

RIKKI KERSTEN

5 The US–Philippines alliance: moving beyond bilateralism? 53

RENATO CRUZ DE CASTRO

6 Thailand’s security policy: bilateralism or multilateralism? 68

CHULACHEEB CHINWANNO
viii Contents

PART III
The nexus and Asian multilateralism 85

7 The role of the Five Power Defence Arrangements in

Southeast Asian security architecture 87
RALF EMMERS

8 Territorial and maritime jurisdiction disputes in East Asia:

comparing bilateral and multilateral approaches 100
AILEEN S.P. BAVIERA

9 The bilateral–multilateral nexus in Asia’s defense diplomacy 115

DAVID CAPIE

PART IV
The nexus and Asian security order 133

10 The rise of China and the transformation of Asia-Pacific

security architecture 135
RYO SAHASHI

11 Alliances and order in the “Asian Century” 157

HUGH WHITE

12 Conceptualizing the relationship between bilateral and

multilateral security approaches in East Asia: a great power
regional order framework 169
EVELYN GOH

13 Conclusion 183
WILLIAM T. TOW

References 193
Index 214
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Figure and tables

Figure
10.1 The spiral dynamics of US–China security relations 153

Tables
5.1 Managing the US–Philippines alliance 54
6.1 China’s arms exports to ASEAN, 2001–11 (US$ million) 70
Contributors

Aileen S.P. Baviera is Professor at the Asian Center, University of the

Philippines, and editor-in-chief of Asian Politics and Policy (Wiley-
Blackwell).

David Capie is Senior Lecturer in International Relations at Victoria

University of Wellington.

Chulacheeb Chinwanno, a former Vice-Rector in International Affairs at

Thammasat University, is Associate Professor in the Faculty of Political
Science, Thammasat University, Bangkok.

Ajin Choi is Associate Professor of International Relations in the Graduate

School of International Studies, Yonsei University, Seoul.

Renato Cruz De Castro is Senior Professor in the International Studies

Department, De La Salle University, Manila, and the holder of the
Charles Lui Chi Keung Professorial Chair in China Studies.

Ralf Emmers is Associate Professor and Coordinator of the Multilateralism

and Regionalism Programme at the S. Rajaratnam School of Inter-
national Studies, Nanyang Technological University, Singapore.

Evelyn Goh is Reader in International Relations and an ESRC Mid-

Career Development Fellow (2011–12) at Royal Holloway, University of
London.
Rikki Kersten is Professor of Modern Japanese Political History in the
Department of Political and Social Change, College of Asia and
the Pacific, at the Australian National University, Canberra.
Ryo Sahashi is Associate Professor of International Politics, Faculty of Law,
Kanagawa University.
Brendan Taylor is Associate Professor and Head of the Strategic and
Defence Studies Centre, College of Asia and the Pacific, at the Australian
National University, Canberra.
 Contributors xi
William T. Tow is Professor and Head of the Department of International
Relations, College of Asia and the Pacific, at the Australian National
University, Canberra.
Hugh White is Professor in the Strategic and Defence Studies Centre,
College of Asia and the Pacific, at the Australian National University,
Canberra. He is also Visiting Fellow at the Lowy Institute for Inter-
national Policy.
Preface

Asia-Pacific countries have reached a crossroads on what form of order-

building they will pursue. The region’s two major powers – the United
States and China – favor bilateral approaches to security and diplomacy to
realize their “core” national interests. Recently, however, both of these states
have “hedged” their respective bilateral strategies and their participation
in multilateral security initiatives has intensified to a degree where Beijing
and Washington are determined not to be marginalized when such initiatives
arise. Such “contending cooperation” has emerged as a key strategic
priority for the region’s great powers and for their middle and small power
counterparts.
The imperative to better understand this dimension of regional security
politics was recognized by the MacArthur Foundation in May 2009 when it
launched its Asia Security Initiative (MASI). Research funds were directed
toward a worldwide (but predominantly Asia-Pacific) network of 27 policy
research institutions and was aimed at understanding key trends and devel-
oping new ideas for overcoming the security challenges faced by Asia-Pacific
states. This volume is the product of a three-year project underwritten
by MASI and focusing on “Policy Alternatives for Integrating Bilateral and
Multilateral Regional Security Approaches in the Asia-Pacific.” Our major
concern was how traditional security ties between the US, its treaty partners,
and other states in the Asia-Pacific fit into that region’s growing and
increasingly crucial multilateral security politics. Our project incorporated
four “focus groups” dealing with processes for achieving a bilateral–
multilateral security nexus in the Asia-Pacific; alliance/coalition initiatives
on “broader security” challenges; the intersection of economics and security;
and arms control and nuclear non-proliferation. The output from the first
two groups is reflected in the pages that follow; the research findings of the
economics–security intersection will be published in a special issue of
the Pacific Review and the conclusions reached by the arms control
and nuclear non-proliferation group will appear in a future issue of the
Australian Journal of International Affairs.
As is usually the case with a task of this scope and duration, there are too
many individuals who contributed to our project efforts to list within this
 Preface xiii
limited space. Those who are acknowledged below, however, merit special
mention and the heartfelt thanks of this book’s editors.
Along with Professor William Tow, Professor John Ravenhill was
co-manager of the Australian National University’s (ANU) partnership
with MASI. We owe him a special debt of gratitude for asking the tough
questions that enhanced the project’s research credibility and relevance, and
for providing commensurate levels of inspiration to his project colleagues.
We are also immensely grateful to Adm. Chris Barry (Ret.) and Professor
Steve Lamy for playing key roles in a project simulation exercise on Asian
security that they largely designed and delivered during a November
2010 workshop, and in which a significant number of Australian security
analysts and policymakers participated. Dr David Envall coordinated this
exercise and has served as editor of the ANU–MASI Policy Background
Paper series, initiated in August 2011, which delivers short papers electro-
nically and aims to give readers a concise background analysis of key
issues driving security developments in the Asian region today. A number of
postgraduate students in the ANU’s Department of International Relations
(IR) and the Strategic and Defence Studies Centre were also instrumental
in providing research and logistical assistance throughout the project. The
efforts of Jacob Berah, Madeline Carr, Greg Collins, Matt Davies, Jason
Hall, Christine Leah, Beverley Loke, Lachlan McGoldrick, Jake Northey,
Michael O’Shannassy, and Jeff Wilson in this context were especially
valuable and highly appreciated.
Various academic colleagues and administrative personnel at the ANU
and elsewhere were instrumental in ensuring that the four major workshops
involving (and combining) the two focus groups whose papers appear in
this book convened and transpired smoothly. We are especially grateful to
Ansonne Belcher, Sheila Flores, Chizuko Horiuchi, HyeRim Kim, Kana
Moy, and Satomi Ono in this context. We also wish to acknowledge
the efforts of Professor Wang Jisi, Professor Zhu Feng, Liu Xinxin, and
Zhang Dee at Peking University; Tom Christensen, Alistair Iain Johnston,
and Rosemary Foot who attended the May 2011 Beida workshop and con-
tributed greatly to the discussion that transpired there; and Professor Kiichi
Fujiwara and Miyuki Otsuka at the University of Tokyo for their efforts
in organizing the ANU–MASI organizational meeting in September 2009.
We are also very much indebted to Ambassador Barry Desker, Dean of the
S. Rajaratnam School of International Studies, who graciously and effec-
tively served as this project’s “senior mentor.”
As has been the case for most of the publications generated by IR
colleagues at the ANU, manuscript preparation has been in the very capable
hands of Ms Mary-Louise Hickey. The editors owe her a special note of
thanks. We are also grateful to Professors Chris Reus-Smit and Hugh White.
As heads of department for our respective units throughout much of the
project’s duration, they extended special understanding and critical support
at key junctures of the project’s duration, without which this publication
xiv Preface
may not have seen the light of day. As always, we are grateful to the
Routledge Press and to both Peter Sowden and Leszek Buszynski (who
co-edits Routledge’s Security in the Asia Pacific series) who have been highly
supportive of the publication of this book.
We would also like to acknowledge the following for permission to reprint
material:
Figure 10.1 from K. Jimbo, R. Sahashi, S. Takahashi, Y. Sakata, T.
Yuzawa, T and M. Masuda, “Japan’s Security Strategy toward China:
Integration, Balancing, and Deterrence in the Era of Power Shift,” Tokyo:
Tokyo Foundation, 2011, p. 28. Reprinted with the permission of the Tokyo
Foundation.
The editors intend that the following pages will contribute to the Asia-
Pacific security debate in a timely and useful way. The stakes for the world’s
most prosperous and dynamic region of “getting the balance right” between
bilateral and multilateral security politics are immense. We are hopeful
that the assessments of this volume’s contributors might facilitate thinking
about those critical issues that will make a difference in achieving regional
peace and stability.
William T. Tow
Brendan Taylor
August 2012
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