In October 2025, ASEAN will admit Timor-Leste as its 11th member. The move carries symbolic weight. It affirms ASEAN’s commitment to regional inclusion and gives long-overdue recognition to Southeast Asia’s youngest state. But this moment of celebration risks obscuring what the accession reveals about the state of the organisation itself: ASEAN is increasingly fragmented, overstretched and constrained by its own foundational principles.
While much has been said about the logistical and institutional challenges Timor-Leste faces, equally important is whether ASEAN can meaningfully integrate a fragile member without deepening its own institutional fatigue. That challenge arrives at a time when ASEAN is already struggling to navigate a more polarised, unequal and contested region.
So, perhaps the real question is not whether Timor-Leste is ready for ASEAN, but whether ASEAN is ready for what comes next.
Timor-Leste’s aspirations to join ASEAN are longstanding. For Dili, membership opens the door to regional economic frameworks, notably the Regional Comprehensive Economic Partnership (RCEP), and offers access to development cooperation and diplomatic visibility. But the capacity gap is substantial. Timor-Leste’s bureaucracy is still consolidating, and its economy remains heavily dependent on petroleum revenues. Even President José Ramos-Horta has acknowledged that full institutional readiness is a long-term goal, not a near-term reality.
For ASEAN, this is not a new dilemma. Past accessions, including Cambodia in 1999, Laos and Myanmar in 1997, similarly placed political inclusion ahead of institutional alignment. The underlying assumption was that integration would catalyse convergence. But decades later, that promise remains unfulfilled. Institutional divergence has grown, not shrunk, and ASEAN’s ability to function as a coherent community has eroded in turn. Myanmar, for instance, presently led by the military, has objected to Timor-Leste’s accession.
What makes Timor-Leste’s accession different is the context. ASEAN is no longer a bloc of ten semi-aligned postcolonial states finding common ground. It is now a far more internally diverse and externally exposed organisation. Admitting another underprepared member without strengthening ASEAN’s integrative tools risks compounding the very weaknesses that make the grouping increasingly brittle.
Timor-Leste’s accession is more than a regional milestone. It is a mirror that reflects both the strength of ASEAN’s vision and the fragility of its current form.
Economically, ASEAN remains far from achieving its vision of a single market and production base. Intra-ASEAN trade continues to hover around 20–25% of total trade, and regulatory harmonisation remains challenges despite various facilitation frameworks. The ASEAN-X model, while enabling pragmatic flexibility, has entrenched a two-speed system that may undermine integrative ambitions. An example is that while the six founding members (ASEAN-6) achieved tariff reductions, Cambodia, Laos, Myanmar and Vietnam have moved at a slower pace thanks to their differentiated levels of development.
Diplomatically, the Myanmar crisis has further exposed ASEAN’s limits. The Five-Point Consensus, once seen as a modest starting point, has stalled, with no enforceable commitments and little appetite for acceleration. The junta continues to defy ASEAN’s nominal pressure with impunity. Rather than mediate or isolate, ASEAN has defaulted to exclusion-without-action, suspending high-level engagement with Myanmar but offering no meaningful alternative.
In the South China Sea, ASEAN faces a familiar impasse. Member states are split between claimants and fence-sitters. China continues to exploit these divisions through bilateral deals, economic inducements and political influence, especially with Cambodia and Laos. The long-awaited Code of Conduct remains aspirational. ASEAN’s strength as a convenor has not translated into strength as a collective actor.
Even internal disputes reveal institutional gaps. The leaked phone call incident between Thailand and Cambodia escalated into a domestic crisis in Thailand, a formal investigation and the suspension of the Thai Prime Minister. With the Thai government facing possible collapse, the episode has severely strained bilateral relations. Yet ASEAN remained silent, offering no platform for de-escalation.
These are not isolated setbacks. ASEAN’s current operating model, centred on consensus and non-interference, is insufficient for the scale of the problems it now faces.
The “ASEAN Way”, with its emphasis on informal diplomacy, consensus, and non-intervention, has long been credited with keeping peace in a diverse region. And rightly so. But norms that once enabled cohesion now often obstruct it. Consensus gives every member a veto, leading to inaction on issues that demand urgency. Non-interference, once a shield against external imposition, has become a barrier to addressing crises within.
Timor-Leste’s accession will likely reinforce this dynamic. Its dependence on Chinese-backed infrastructure and economic support could complicate ASEAN’s already-fractured positions on regional geopolitics. Or its democratic credentials could unsettle ASEAN’s internal balance, where democratic norms, though officially encoded, are often downplayed in favour of regional cohesion and consensus. If the bloc cannot coordinate responses to existing tensions, adding another diplomatically unpredictable member may further dilute its ability to act.
What is now at stake is not just operational but reputational. ASEAN’s claim to “centrality” in regional affairs depends on shaping outcomes, not just being present.
What’s needed now is a set of targeted, pragmatic reforms that reinforce ASEAN’s role as a flexible, responsive institution rather than a purely symbolic one.
First, consensus decision-making should be reviewed for non-sensitive areas. Qualified majority voting – at least in economic or technical domains, could be piloted to improve responsiveness without undermining political sovereignty.
Second, differential integration may still be ASEAN’s most realistic path forward if paired with deliberate mechanisms to prevent fragmentation. The ASEAN-X model has extended beyond conventional trade to include emerging areas like digital economy. But it remains underused in more sensitive domains, like security cooperation, cyber norms, or climate adaptation.
Third, ASEAN’s institutional machinery needs upgrading. The Secretariat remains under-resourced and politically constrained. A stronger mandate, better funding, and clearer authority to monitor implementation would improve ASEAN’s coherence and help level the gap between members.
Finally, Timor-Leste’s integration should be treated as a test case for ASEAN’s ability to support institutional development. That will require not just training workshops, but also sustained funding, secondments and mentoring mechanisms aligned with ASEAN’s long-term goals.
Timor-Leste’s accession is more than a regional milestone. It is a mirror that reflects both the strength of ASEAN’s vision and the fragility of its current form. The bloc’s success has never been built on power but on process, persistence and pragmatism. But process alone is no longer enough.
The views expressed in this article are the author’s own and do not reflect those of his workplace and affiliated institutions.
