Toward a Rules-Based Indo-Pacific: Quad as the Central Gear of Multi-Layered Cooperation
Introduction
The Quadrilateral Security Dialogue (Quad)—comprising Australia, India, Japan, and the United States—is a pivotal grouping committed to Indo-Pacific stability and prosperity. The U.S. Indo-Pacific Strategy identifies a "strong and reliable Quad" as a strategic means to achieve a "free and open Indo-Pacific" that is more connected, prosperous, secure, and resilient (Biden White House, 2022). This underscores the Quad's role in shaping regional security and upholding a "rules-based global order," a system governed by international law, norms, and institutions rather than raw power.
Historically, ancient Indian Ocean trade flourished under customary order, only to be disrupted by European powers who disregarded existing norms (Chaudhuri, 1985). This historical lesson—that a functional order can be undermined by non-normative actors—underscores the contemporary imperative for the Quad to actively promote and uphold international law. Quad’s mission is not just about geopolitical competition & zero-sum rivalry but preventing a return to an era where power dictates maritime conduct. To enhance its effectiveness, the Quad must move beyond traditional security cooperation, strategically integrating with existing regional frameworks, fostering economic resilience, and building partners' capacity to uphold international law.
The Indo-Pacific's Strategic Imperatives and Challenges to the Rules-Based Order
The Indo-Pacific is a global economic and strategic nexus, vital for international prosperity. It hosts critical Sea Lines of Communication (SLOCs), carrying massive volumes of global trade and energy resources, particularly through the Indian Ocean and Southeast Asian waters (Indian Ocean Rim Association. (n.d.), 2025) (ASEAN Maritime Outlook, 2023). Despite its economic vitality, the Indo-Pacific faces diverse threats challenging the rules-based order.
Challenge | Description |
Geopolitical Tensions | Assertive regional powers challenging territorial waters and strategic influence |
Economic Coercion | Debt-trap diplomacy and infrastructure alternatives reduce QUAD influence |
Maritime Security Threats | Piracy, IUU fishing, and natural disasters disrupt trade and stability |
Technological Rivalry | Competition in AI, 5G, and cyber technologies |
Climate Change | Rising sea levels, extreme weather threatens coastal infrastructure |
Public Perception | Divergent national interests affect coalition credibility |
Table 1: Contemporary challenges for the rules-based order
The illicit activities and actions by "states and non-state actors eschewing international law" (Pacific Forum Issues & Insights Vol. 20 WP 1-1, 2020) collectively erode the rule of law, requiring a holistic approach to enforcement (Security Council Report, 2025).
The region's economic prosperity is directly contingent on the enforceability of this rules-based maritime order, creating a strong economic imperative for Quad action.
Strategic Integration and Actionable Recommendations for Enhanced Effectiveness of QUAD
The Quad's future effectiveness in enforcing a rules-based order lies not in becoming a standalone, exclusive enforcement body, but in acting as a "network of networks." This requires strategic integration with existing regional frameworks and proactive implementation of comprehensive strategies. This approach leverages established mechanisms, enhances legitimacy, and fosters a more inclusive and sustainable regional architecture.
Image 1 – QUAD’s Integration with Regional Strategic Frameworks
Effective rules enforcement also requires moving beyond merely reacting to violations to proactively shaping the regional environment through robust governance frameworks, investing in sustainable development, promoting digital norms, and championing transparency. This broadens the definition of "enforcement" to include preventative measures, institution-building, and norm-setting, creating a more enduring rules-based order.
Recommendations for Establishing a Rules-Based Order via Existing Frameworks
Recommendation | Details | Relevant Frameworks / Linkages |
QUAD Maritime Code of Conduct (QMCC) | Formal, binding maritime code to enforce freedom of navigation, dispute resolution, and cooperative norms; first-of-its-kind initiative for QUAD (not existing as of 2025) | EAMF, ASEAN, IORA, SAGAR, MAHASAGAR (UNCLOS-improved norms, maritime codes, dispute resolution) |
Strategic Maritime Corridors Reinforcement | Systematic protection of chokepoints via joint patrols, AI surveillance, and logistics hubs | IORA (Indian Ocean chokepoints), ASEAN (Straits of Malacca), ADMM-Plus, SAGAR (Indian Ocean Focus) |
Integrated Economic Security Initiatives | Transparent, sustainable infrastructure projects; standardized protocols for critical-minerals supply chains | RCEP, ASEAN, IORA (Blue Economy, connectivity, trade standards), MAHASAGAR (holistic regional growth) |
Maritime Knowledge Exchange & Joint R&D | Establish a QUAD Center for Maritime Knowledge and Technology, fostering AI, renewable energy, and climate-resilient maritime research | IORA (Blue Economy), ASEAN (EAMF), Indian Ocean Commission (IOC), SAGAR, MAHASAGAR |
Multilateral Crisis Response Mechanism | Permanent taskforce to coordinate responses to pandemics, disasters, and hybrid threats | ASEAN (ARF, ADMM-Plus), IORA, UN frameworks, SAGAR (regional resilience) |
Soft Power & Norm-Building | Systematic cultural, educational, and public diplomacy initiatives to enhance legitimacy and influence | ASEAN (People-to-People Connectivity), IORA, UNESCO/Track 2 diplomacy platforms, MAHASAGAR (inclusive outreach) |
Technology-Driven Transparency | Unified QUAD maritime situational awareness platform integrating AIS, satellite, AI, and blockchain for logistics security | IORA (MDA initiatives), ASEAN (AMMTC, EAMF), Information Fusion Centre (Singapore), SAGAR (MDA focus) |
Joint Operational Frameworks | Standardized protocols for combined exercises, intelligence sharing, and decision-making | ADMM-Plus, EAMF, IORA MSS, ASEAN, SAGAR |
Inclusive Maritime Partnerships | Extend formal observer and consultative mechanisms with Southeast Asian, Pacific Island, and East African nations | ASEAN, Pacific Islands Forum (PIF), IORA, African Union (AU), MAHASAGAR (broad regional inclusivity) |
Table 2: Recommendations for Integration & Improvements via Existing Frameworks
Image 2 – Potential Future Achievements of QUAD
A. Deepening Engagement with ASEAN: Centrality and Collaborative Mechanisms
ASEAN recognizes the multi-faceted nature of maritime issues and is committed to a holistic, integrated, and comprehensive approach (ASEAN, n.d.). Southeast Asia's waters are globally strategic for trade, food and energy security, and marine biodiversity (ASEAN Maritime Outlook, 2023). This comprehensive approach, encompassing security, connectivity, environmental protection, and resource management, serves as a valuable model for the Quad.
By aligning with ASEAN's broader agenda, the Quad demonstrates commitment to a stable and prosperous Indo-Pacific, not just a secure one, enhancing legitimacy and regional buy-in. To formalize and deepen this engagement, the Quad should:
Mechanism | Key Focus/Mandate | Potential Quad Collaboration Areas |
ASEAN Maritime Forum (AMF) | Dialogue and coordination on multi-dimensional maritime issues; holistic and integrated approach (ASEAN, n.d.) | Policy coordination on regional maritime issues, support for rule-of-law initiatives, enhanced information sharing protocols |
Expanded ASEAN Maritime Forum (EAMF) | Engaging external partners (including Quad members) in dialogue on common maritime issues (ASEAN, n.d.) | Joint exercises, capacity building programs, technical assistance for maritime law enforcement |
ASEAN Defence Ministers' Meeting (ADMM) and ADMM-Plus | Promoting cooperation in the maritime domain among ASEAN and with external partners (ASEAN Maritime Outlook, 2023) | Joint training and exercises, exchange of best practices in defense and security, coordinated responses to maritime threats |
ASEAN Ministerial Meeting on Transnational Crime (AMMTC) | Addressing transnational crime (ASEAN Maritime Outlook, 2023) | Enhanced information sharing, joint operations against transnational maritime crime, support for legal and judicial frameworks |
Table 3: Key ASEAN Maritime Cooperation Mechanisms and Potential Quad Collaboration Areas
B. Partnering with IORA for Maritime Governance and Sustainable Development
The Indian Ocean Rim Association (IORA), established in 1997, unites 2.7 billion people across the Indian Ocean rim (Indian Ocean Rim Association. (n.d.), 2025). Its explicit focus on "Ensuring freedom of navigation and overflight, in accordance with the UN Convention on the Law of the Sea (UNCLOS)" (Indian Ocean Rim Association. (n.d.), 2025) directly mirrors the Quad's objective of upholding international law (Biden White House, 2022). This makes IORA a natural, legitimate, and geographically focused partner for the Quad. IORA's mandate is tailored to the Indian Ocean's unique challenges, and its emphasis on UNCLOS provides a clear, shared normative foundation for rules enforcement.
IORA Priority Area | Key Objectives/Focus | Specific Quad Contribution/Engagement |
Maritime Safety & Security (MSS) | Addresses piracy, illegal trafficking, IUU fishing, ocean health degradation; ensuring freedom of navigation and overflight, in accordance with UNCLOS (Indian Ocean Rim Association. (n.d.), 2025) | Joint training and exercises, technology transfer for maritime surveillance, policy dialogue on maritime law enforcement, advocacy for international law |
Blue Economy | Fosters sustainable socio-economic growth while protecting marine resources (Indian Ocean Rim Association. (n.d.), 2025) | Support for Blue Economy initiatives, joint marine scientific research, promotion of public-private partnerships for sustainable development |
Fisheries Management | Manages fisheries, addressing issues like IUU fishing (Indian Ocean Rim Association. (n.d.), 2025) | Technical assistance for fisheries monitoring and enforcement, sharing best practices in sustainable aquaculture |
Table 4: IORA Priority Areas and Overlap with Quad Objectives for Rules Enforcement
C. Reinforcing Economic and Digital Governance through RCEP Principles
The "rules-based global order" has strong economic components. The Regional Comprehensive Economic Partnership (RCEP) aims to establish a "modern, comprehensive, high-quality, and mutually beneficial economic partnership" among Asia-Pacific economies, offering a robust framework to deepen economic governance and complement the WTO system (ASEAN Secretariat, 2025). Its objective is to establish a "modern, comprehensive, high-quality, and mutually beneficial economic partnership" (ASEAN Secretariat, 2025). To reinforce economic and digital governance, the Quad should:
Fostering economic resilience, connectivity, and digital governance
Promote open, interoperable, reliable, and secure internet infrastructure
Support robust e-commerce frameworks and intellectual property protections
Encourage transparent and fair-trade practices and strengthen regional supply chain resilience to reduce economic vulnerabilities.
Strengthen normative advocacy and diplomatic cohesion
Conclusion
Prime Minister Modi’s maritime doctrines—SAGAR (Security and Growth for All in the Region) launched in 2015 and its expanded incarnation, MAHASAGAR (Mutual and Holistic Advancement for Security and Growth Across Regions) unveiled in March 2025—offer the Quad a strategic and inclusive framework for operationalizing a rules-based global order (Ministry of External Affairs, 2025). SAGAR sets a precedent in maritime cooperation and capacity-building across the Indian Ocean, while MAHASAGAR broadens this approach across the Global South, emphasizing trade for development, technology sharing, and sustainable cooperation (Ministry of External Affairs, 2025) (Haldar, 2025).
When India’s humanitarian assistance and emergency relief are combined with Japan’s infrastructure diplomacy, Australia’s maritime domain awareness initiatives, and the United States’ technological and security backing, the Quad transforms from a consultative forum into a practical enforcer of regional norms and stability. This strategic convergence demonstrates that the Quad can foster an Indo-Pacific order defined by predictable norms, equitable prosperity, and collective resilience, rather than zero-sum competition.
Reality Check 2025
While India, the USA, and Japan largely converge around strengthening a rules-based maritime order strengthening Quad—with India’s MAHASAGAR offering a new integrative framework—Australia’s approach reflects partial divergence. Its strong AUKUS-driven defence tilt, though reinforcing deterrence, risks narrowing the Quad’s broader, inclusive, and norm-enforcing role, creating subtle tensions between collective security imperatives and regional inclusivity. Below graph shows the convergence & divergence for Quad nations based on Table in Appendix 1 containing policies and initiatives with governmental references:
Image 3 – Reality Check for Quad Nations as of 2025
Appendix 1
Country | Policy / Initiative | Year of Launch | Key Focus / Elements | Convergence or Divergence toward QUAD as Rule-Based Global Order Enabler (2025) |
India | SAGAR (Security and Growth for All in the Region) (Haldar, 2025) | 2015 | Cooperative maritime security, capacity building, regional inclusivity | Convergence – enhances inclusivity and maritime security norms |
Indo-Pacific Oceans Initiative (IPOI) (Indian Ocean Rim Association. (n.d.), 2025) | 2019 | Maritime ecology, connectivity, capacity building | Convergence – aligns with Quad’s multi-sectoral Indo-Pacific strategy | |
MAHASAGAR (Maritime and Humanitarian Assistance for Security and Growth of All Regions) (Ministry of External Affairs, 2025) | 2025 | Expanded humanitarian + security framework, integrating IORA, ASEAN, AU | Strong Convergence – institutionalizes India’s role as Quad enabler | |
United States | Free and Open Indo-Pacific (FOIP) Strategy (Biden White House, 2022) | 2017 (revised 2022) | Freedom of navigation, UNCLOS, economic security | Convergence – cornerstone of Quad’s rules-based order focus |
Indo-Pacific Partnership for Maritime Domain Awareness (IPMDA) (Biden White House, 2022) | 2022 | Satellite-based MDA for partners in Indo-Pacific | Convergence – supports transparency and regional capability | |
Expanded 2025 Indo-Pacific Strategy (with economic corridors) (Biden White House, 2022) | 2025 | Supply chains, chokepoint security, cyber-maritime resilience | Convergence – reinforces Quad’s systemic approach | |
Japan | Free and Open Indo-Pacific (FOIP) Vision (Security Council Report, 2025) | 2016 (revised 2023) | Rule of law, connectivity, quality infrastructure | Convergence – strong normative and developmental alignment |
2025 Indo-Pacific Connectivity and Resilience Plan (Security Council Report, 2025) | 2025 | Energy security, digital infrastructure, maritime logistics | Convergence – complements Quad economic and maritime resilience | |
Australia | 2020 Defence Strategic Update + Indo-Pacific Strategy (DFAT AU, 2025) | 2020 | Stronger naval posture, alliance-based security | Partial Divergence – at times more alliance (AUKUS)-focused than Quad-specific |
Pacific Step-Up (DFAT AU, 2025) | 2018 | Pacific Islands engagement, development partnerships | Convergence – reinforces inclusivity, norm-building | |
2025 Indian Ocean-Pacific Integration Plan (DFAT AU, 2025) | 2025 | Bridges Indian Ocean with Pacific, development + security initiatives | Convergence – aligns with Quad’s holistic regional vision |
References
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