Securing Southeast Asian waters: Formalising the role of the ASEAN Coast Guard Forum

Terrorism, human and drug trafficking, environmental crimes, and increasingly sophisticated cybersecurity risks all have a maritime dimension. Coupled with ongoing geopolitical tensions in the South China Sea, the growing complexity of maritime crimes requires more integrated and dedicated Coast Guard agencies in Southeast Asia.

Coast Guard agencies in Southeast Asia have varied organisational structures, with some under different ministries such as Home Affairs, Defence, or Transport. Their roles also differ based on national needs, ranging from search and rescue to maritime law enforcement, as seen with the Malaysian Maritime Enforcement Agency (MMEA), the Vietnam Coast Guard, and the Philippines Coast Guard. This variation influences the maritime security priorities of each agency, with some countries focusing on the suppression of maritime crimes at sea, while others prioritise the protection of sovereignty and sovereign rights.

The ASEAN Coast Guard Forum (ACF) was established with the aim to “create an exclusive dialogue mechanism to foster ASEAN’s centrality towards maritime security in the region” as the member countries are striving to enhance cooperation and communication to counter maritime threats such as Illegal, unreported and unregulated (IUU) fishing, human and drugs trafficking, patrolling the South China Sea and ultimately to better understand shared maritime security concerns. The Forum has great potential as a platform to address existing differences and strengthen regional cooperation in tackling shared maritime interests. External partners, such as the United States, support ASEAN’s regional maritime security efforts and are keen to engage with the ACF.

The first forum meeting was hosted by Indonesia in November 2022 with eight ASEAN countries participating. In May 2023, The Philippine Coast Guard and the United Nations Office on Drugs and Crime-Global Maritime Crime Program (UNODC-GMCP) co-hosted the ACF Technical Expert Group Meeting where the Draft Concept Paper and Terms of Reference was finalised. The second forum was held in Indonesia in 2023, which featured table-top exercises, execution of state-to-state cooperation agreements, and an announcement of cooperation between Indonesia and Malaysia to assist Rohingya refugees fleeing Myanmar. The third edition of the forum was held in the Philippines in June 2024, with Coast Guards discussing the draft Terms of Reference for the Working Groups on Capacity Building, Information Sharing, and Operation Cooperation, and the proposed draft Southeast Asia-Protocol of Engagement at Sea for Coast Guard and Maritime Law Enforcement (SEA-PEACE).

Overall, these three forums were successful in kickstarting dialogue on a common and structured approach to humanitarian, security, law enforcement, and capacity building for coast guards across the ASEAN region. However, after three iterations, it is high time for the ACF to evolve into a more formal and institutionalised body under the ASEAN umbrella. In fact, calls for this have already been made by several ASEAN member states, as evidenced by two working drafts on its formal establishment that were crafted during the last ACF.

The formalisation of the ACF requires multiple actions.

First, facilitating regular meetings and periodic joint exercises with the participation of coast guards and maritime law enforcement agencies from all ASEAN member states is vital. This is important given that previous meetings have not seen full representation from all members, as some were absent to tackle more pressing domestic issues at the time, such as national election preparations and disaster management. Such absences can potentially undermine the effectiveness and inclusiveness of ACF’s initiatives. Active involvement of all members will help build mutual trust, foster interoperability, and ensure that all perspectives and capacities are considered.

Second, it is necessary to finalise and adopt relevant guidelines and documents to ensure the effective operation of the ACF. For instance, a concept paper on the ACF should be developed to clearly define its mandate, significance, scope, and the forms of its activities. Additionally, terms of reference should be issued to outline the responsibilities of its members, the decision-making processes, and the work plan for the ACF. These documents should also outline the protocols for engagement to guide the activities at sea of ASEAN states’ coast guards. To this end, the European Coast Guard Functions Forum (ECGFF) exemplifies effective cooperation among coast guards and may provide valuable insights for ACF.

The cooperation mechanisms of ACF should ensure transparency, open communications, and a mutual understanding of shared maritime security challenges. Real-time information sharing will enable its members to exchange maritime surveillance data and intelligence on common threats. Currently, ASEAN navies facilitate information exchange through the ASEAN Information-Sharing Portal; the ACF could develop a similar dedicated platform for Coast Guard agencies. Still, challenges such as varying national policies, data sensitivity, and the region's linguistic diversity may hinder effective information-sharing.

Capacity-building exercises should also remain a central focus of cooperation, where maritime law enforcement agencies could co-host joint drills, law enforcement exercises, specialised training, and knowledge exchange programs. Training programs can encompass areas such as search and rescue operations, cybersecurity, safety protocols, navigation techniques, and equipment training, among others. This, in turn, can strengthen a common understanding of maritime security challenges and promote inter-agency cooperation. Recently, the Philippines and Vietnam held the first-ever joint coast guard exercise. This could be scaled up to involve more coast guard agencies in the region through the umbrella of ACF.

Operationalising these recommendations is not easy. Southeast Asian coast guards continue to face constraints in resources, personnel, and funding, which can hinder their meaningful participation in regional engagements. Notwithstanding, the formalisation of ACF is essential for effectively suppressing maritime crimes, such as illicit trafficking and IUU fishing, which necessitates interstate cooperation in law enforcement. This initiative will empower the ACF to play a stronger role in advancing ASEAN's commitment to a comprehensive and integrated maritime security strategy.

This article is part of the “Blue Security” project led by La Trobe Asia, University of Western Australia Defence and Security Institute, Griffith Asia Institute, United States Studies Centre, UNSW Canberra and the Asia-Pacific Development, Diplomacy and Defence Dialogue (AP4D). Views expressed are solely of its authors.