Changing Norms in Practice: Noninterference in the UN and ASEAN

Abstract Noninterference is a foundational governance norm for international and regional organizations. In the United Nations and the Association of Southeast Asian Nations, the norm has long undergirded the practice of interstate governance in fundamental ways. However, the noninterference norm has been understood and enacted in disparate ways between these organizations and over time within them. While theories of norm diffusion and contestation have long examined the variable understanding of norms within different contexts, we argue that they are inadequate to analyze cases—like those we examine in this article—where divergent practices do not spring from a conscious desire to contest a norm's relevance, meaning, or requirements. To understand dynamics of norm change, we argue that the growing literature on international practices should be placed in dialogue with both traditional accounts of norm diffusion and existing scholarship on norm contestation. We build on these literatures to offer a novel and productive framework to explore shifting beliefs about the competent enactment of norms within disparate communities over time. Empirically, we center attention on the recent United Nations (UN) peace operation in Côte d'Ivoire and the Association of Southeast Asian Nations (ASEAN) response to the ongoing Rohingya crisis. In each case, we show that divergent interpretations of the noninterference norm are embedded in seemingly mundane practices that have the potential to transform that norm over the long term. We draw on detailed empirical evidence to illustrate the changing practice of the noninterference norm in each case, relying on seventy-six interviews with officials from both organizations.