The promise and risk of expansion ASEAN's enlargement, notably the potential accession of Timor-Leste, embodies the bloc's aspiration for regional unity and development. However, this expansion introduces a complex challenge in allocating limited resources amidst competing priorities. A critical concern arises regarding the potential burden on funding mechanisms and the priority of  educational equity and lifelong learning (LLL) – pillars essential for inclusive growth and human capital development across the diverse membership (ASEAN Secretariat, 2021). In this opinion, I argue that enlargement risks straining ASEAN's cooperative funding structures, potentially diverting resources and political attention away from ambitious education goals, thereby exacerbating existing inequality unless proactive, innovative financing and governance mechanisms are adopted and localised.
The burden of enlargement through resource dilution and priority shiftingÂ
Dilution of existing funding pools, ASEAN operates primarily through voluntary contributions and project-based funding (often reliant on external partners). Enlargement increases the claimant pool for limited resources. For example, the ASEAN-China Cooperation Fund or the Initiative for ASEAN Integration (IAI) Work Plans are facing increased demand. Recently, less developed members (like Timor-Leste) require significant investment in basic infrastructure and foundation in education, potentially competing with funds earmarked for advancing LLL or closing equity gaps in existing CLMV (Cambodia, Laos, Myanmar, Vietnam) nations. Impact on equity, resources previously focused on narrowing intra-CLMV disparities might be stretched thinner or redirected towards foundational needs in the newest member, slowing progress towards equitable access within the existing membership.
Shifting strategic priorities by integrating a new member demands substantial political and bureaucratic capital. Negotiations, institution-building, and establishing basic cooperation frameworks can dominate the ASEAN agenda. As an Illustration, the focus shifts towards immediate integration challenges (e.g., legal harmonization, connectivity projects) potentially sidelining complex, long-term goals like systemic educational reform or comprehensive LLL strategies requiring sustained commitment. Impact on Lifelong Learning, often requiring cross-sectoral coordination (education, labour, industry), is vulnerable to being deprioritized in favour of more tangible, short-term integration deliverables perceived as crucial for the new member's inclusion (UNESCO, 2021).
Exacerbating existing disparities through ASEAN faces significant pre-existing economic and educational inequalities. Enlargement adds another layer of developmental heterogeneity. For illustration, Timor-Leste's GDP per capita and educational indicators lag behind even the CLMV countries (World Bank, 2023). Addressing its needs could widen the perceived gap between the "core" ASEAN-6 and the less developed members, creating tension over resource allocation fairness and potentially undermining solidarity needed for collective equity goals. Impact on education goals is the pressure to demonstrate "successful integration" which might lead to resources being funnelled into visible projects in the new member, potentially at the expense of deeper, less visible equity initiatives (e.g., teacher quality improvement, inclusive education for marginalized groups) across all members.
Perspectives on the challenge
ASEAN's consensus-based decision-making and aversion to supranational authority hinder the establishment of robust, mandatory funding mechanisms for redistributive purposes. Enlargement amplifies this challenge, making it harder to agree on significant resource transfers towards equity goals. The collective action problem was about enlargement increasing the number of actors, potentially heightening the difficulty of achieving consensus on burden-sharing for regional public goods like educational equity and LLL systems. Free-rider tendencies may increase. Furthermore, human capital development emphasizes that neglecting educational equity and LLL undermines ASEAN's long-term economic integration (AEC Blueprint 2025) and resilience. Widening skill gaps hinder labour mobility and inclusive growth, making underinvestment a strategic risk.
Mitigating the burden for pathways forward
Innovative & diversified financing by expanding the ASEAN development fund through exploring options for assessed contributions scaled to GDP, supplemented by targeted voluntary contributions for specific equity/LLL initiatives.
Leveraging public-private partnerships (PPPs) will develop frameworks for private sector investment in LLL infrastructure (e.g., digital learning platforms, skills certification) and equitable access schemes. Blended finance utilises development aid strategically to de-risk and catalyse private investment in inclusive education and skills projects, especially in newer/less developed members (ADB, 2022).
Strengthened governance and prioritization ring-fencing equity & LLL funding trying to advocate for dedicated budget lines within ASEAN cooperation frameworks specifically for cross-cutting equity initiatives and LLL program development, insulated from ad hoc reallocation.
