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The article provides an in-depth analysis of the challenges and opportunities in counter-terrorism cooperation between China and ASEAN countries, emphasizing the importance of President Xi Jinping’s vision of common, comprehensive, cooperative, and sustainable security in advancing bilateral collaboration. It explores the impact of terrorism on regional security and identifies priority areas for political-security cooperation between China and ASEAN nations to ensure the smooth implementation of the Belt and Road Initiative. Additionally, drawing on interregionalism theory and collective action theory, the article examines key factors for deepening and sustaining cooperation, offering theoretical insights for more effective interregional collaboration.

1. The Institutional Platforms for Counter-Terrorism Cooperation Between China and ASEAN Countries

It elaborates on the institutional platforms for counter-terrorism cooperation between China and ASEAN countries. Since the end of the Cold War, China and ASEAN nations have strengthened their ties in the field of security cooperation, particularly in combating terrorism and transnational crime, through the establishment of dialogue partnerships. Under the framework of international counter-terrorism conventions, the two sides have constructed a multi-tiered cooperation mechanism, encompassing grand multilateral, mini-multilateral, and bilateral cooperation.

In terms of grand multilateral cooperation mechanisms, since establishing a dialogue partnership in 1991, China and ASEAN have progressively refined dialogue and cooperation mechanisms involving leaders, ministers, and senior officials. The *Joint Declaration of ASEAN and China on Cooperation in the Field of Non-Traditional Security Issues*, signed in 2002, marked the comprehensive launch of cooperation in non-traditional security, with a focus on combating terrorism and other criminal activities. Subsequently, the two sides signed a series of legal documents, such as the *Memorandum of Understanding on Cooperation in Non-Traditional Security Fields* and the *Beijing Declaration on Strengthening Cooperation Among the Capital Police Departments of ASEAN, China, Japan, and South Korea*, providing a legal foundation for counter-terrorism cooperation.

Regarding mini-multilateral cooperation mechanisms, the Lancang-Mekong Law Enforcement and Security Cooperation Mechanism serves as an example. Established after the investigation of the Mekong River massacre, this mechanism aims to enhance law enforcement and security cooperation among the four countries in counter-terrorism, drug-related crimes, and other transnational criminal activities. In 2017, the Lancang-Mekong Law Enforcement Cooperation Center was established, marking the official launch of the first comprehensive intergovernmental international organization for law enforcement and security cooperation led by China.

In terms of bilateral cooperation mechanisms, frequent interactions occur between China and ASEAN countries, such as the China-Myanmar, China-Vietnam, China-Malaysia, and China-Cambodia law enforcement and security cooperation mechanisms. These mechanisms not only establish principles guiding bilateral law enforcement agencies but also incorporate the fight against transnational crime into the scope of bilateral security cooperation.

Regarding global multilateral, interregional, and regional cooperation mechanisms, international conventions issued by the United Nations and declarations by INTERPOL provide a normative foundation for counter-terrorism cooperation between China and ASEAN countries. Meanwhile, regional organizations such as the European Union and the Shanghai Cooperation Organization, as well as cooperation mechanisms like APEC and the ASEAN Defense Ministers’ Meeting Plus, play an external driving role in counter-terrorism cooperation between China and ASEAN nations.

Overall, China and ASEAN countries have established a multi-tiered cooperation mechanism in counter-terrorism, providing an effective guarantee for promoting comprehensive counter-terrorism collaboration.

II. Practical Challenges in Counterterrorism Cooperation Between China and ASEAN Countries

Under the Belt and Road Initiative, China and ASEAN countries have encountered multifaceted challenges in counterterrorism cooperation. These challenges include differences in threat perceptions and security concepts, variations in national counterterrorism policies and legal orientations, the balancing of external relations, and obstacles in cooperative frameworks and mechanisms. Structural barriers within ASEAN, such as slow decision-making and legislative processes, inefficient implementation measures, disparities in counterterrorism capabilities among member states, as well as the characteristics of "weak institutions" and "soft laws," have all hindered cooperation. Domestic political issues often take precedence over regional counterterrorism collaboration, further impeding progress.

The inadequacy of preventive counterterrorism measures is another significant issue. The lack of intelligence cooperation, neglect of cyberterrorism threats, and weak security for critical infrastructure projects have all limited the depth of collaboration. Uneven progress in legal development, including inconsistent legal processes, differing stances on joining counterterrorism conventions, and non-uniform regulatory frameworks, further complicates cooperation.

Additionally, the balancing of regional powers, particularly the strategic deployment of the United States in Southeast Asia, has exerted external pressure on China-ASEAN counterterrorism cooperation. Adjustments in the U.S. Indo-Pacific strategy, its efforts to court Southeast Asian countries, and shifts in global counterterrorism strategies have all impacted the collaboration between China and ASEAN.

These challenges not only increase the transaction costs of cooperation but also weaken collective identity among nations, adding obstacles to interregional governance. To overcome these difficulties, it is necessary to conduct an in-depth analysis of the underlying logic behind these issues and explore effective solutions.

3. Construction of the Theoretical Analytical Framework for Interregional Counterterrorism Cooperation and Selection of Governance Pathways

The article delves into the theoretical innovations and pathway explorations of counter-terrorism cooperation between China and ASEAN countries. It first points out that existing research predominantly focuses on practice and experience, lacking theoretical guidance, thus highlighting the necessity of constructing a new theoretical analytical framework for interregional counter-terrorism cooperation. This framework is based on interregionalism theory and collective action theory, emphasizing the importance of interregional cooperation and proposing the five core functions of interregionalism, along with the foundational conditions and potential pathways for governance.

The article provides a detailed analysis of interregionalism theory, including its definition, core functions, and governance pathways, as well as the application of collective action theory in counter-terrorism cooperation. By integrating these theories, the article constructs an analytical framework centered on three core elements—theoretical foundation, legal basis, and law enforcement pathways—to assess the feasibility, viability, and effectiveness of counter-terrorism cooperation.

In terms of governance pathway selection, the article proposes cooperation pathways based on interregionalism, including institutional building, agenda-setting, norm diffusion, and the construction of a cooperative security concept. It particularly emphasizes the successful case of the Lancang-Mekong Law Enforcement and Security Cooperation Mechanism and how police diplomacy strategies can advance cooperation. Additionally, the article explores cooperation pathways based on collective action theory, such as enhancing collaborative motivation through selective incentive mechanisms, and analyzes the needs and incentives of different ASEAN countries in counter-terrorism cooperation.

Through case studies, the article demonstrates how police diplomacy has facilitated Lancang-Mekong security cooperation and how the innovative introduction of police diplomacy strategies has promoted case resolution and the establishment of law enforcement cooperation mechanisms. Overall, the article provides theoretical support and practical guidance for counter-terrorism cooperation between China and ASEAN countries, aiming to foster deeper and more effective regional security collaboration.

IV. Conclusion

The report of the 20th National Congress of the Communist Party of China emphasizes China's active participation in the formulation of global security rules and international security cooperation, highlighting the critical role of security collaboration between China and ASEAN countries in global peace and regional stability. Facing challenges in the international and regional security environment, counterterrorism cooperation between China and ASEAN nations in the new phase of comprehensive strategic partnership must overcome difficulties to achieve effective, enduring, and sustainable collaboration, thereby ensuring the high-quality development of the Belt and Road Initiative. The theoretical analytical framework for interregional counterterrorism cooperation proposed in this article provides a scientific model for understanding China-ASEAN counterterrorism efforts, particularly the innovative application of policing diplomacy strategies in Lancang-Mekong security cooperation. The effectiveness of interregional counterterrorism cooperation relies on the security environment, cooperative mechanisms and norms, institutional development levels, shared interests, and the exploration of a "China model." Amidst global transformations, established international counterterrorism conventions and cooperation mechanisms have become particularly vital, serving as stabilizing forces amid uncertainties. The level of institutional development and shared interests are crucial for cooperative progress, with China actively exploring a "China model" for counterterrorism cooperation by providing public security goods, advancing agenda-setting, and norm-building. The theoretical analytical framework requires continuous validation and refinement in practice to address specific cooperative challenges.