Who shapes global AI rules: Asean-China cooperation role

Artificial intelligence (AI) is no longer a technology of the future. It is already shaping the present. AI systems influence how information is accessed, how businesses operate, how governments deliver services, and increasingly, how societies make decisions. Yet amid the excitement surrounding AI's transformative potential, a fundamental question remains: who gets to write the rules?

This question is becoming more urgent. Governments and technology companies worldwide are racing to establish standards, regulations, and governance frameworks for AI. The decisions made today will shape economic competitiveness, technological sovereignty, and social development for decades to come. Those who define the rules will also influence who benefits from AI's immense potential.

Recent developments illustrate how quickly the global AI governance landscape is evolving. The European Union's AI Act, which entered into force in 2024, represents one of the world's first comprehensive regulatory frameworks for artificial intelligence. At the same time, initiatives such as the G7 Hiroshima AI Process and ongoing United Nations discussions on AI governance are helping shape emerging global norms. While these developments are significant, many developing countries have had limited influence over their design.

For many developing countries, there is a growing risk of becoming rule-takers rather than rule-makers. If AI governance is shaped primarily by a small group of technologically advanced economies, the priorities and realities of much of the world may be overlooked. The result could be a new form of inequality, where developing nations are expected to follow standards that they had little role in creating. This is why the discussion on AI governance must go beyond technology and place development at its center.

AI governance must serve development, not just innovation

Much of the global debate on AI governance focuses on technological leadership and geopolitical competition. Yet for billions of people in developing countries, the more pressing question is whether AI can improve livelihoods, strengthen public services, expand educational opportunities, and support sustainable economic growth.

This perspective lies at the heart of China's Global Development Initiative (GDI), which emphasises inclusive development, international cooperation, capacity-building, and shared prosperity. These principles provide a useful framework for ensuring that AI advances development goals rather than widening existing gaps.

The challenge is not simply how to regulate AI, but how to ensure that its benefits are widely shared. History offers a warning. Earlier industrial revolutions generated unprecedented wealth but also widened disparities between those who possessed technological capabilities and those who did not. The AI revolution risks repeating that pattern unless governance frameworks promote broader participation and inclusion. The real question, therefore, is not whether AI will transform the world. It is whether that transformation will be equitable.

Asean-China cooperation as a strategic imperative

Against this backdrop, Asean-China cooperation represents more than a regional partnership. It offers an opportunity to contribute to a more balanced model of global AI governance. Existing mechanisms such as the Asean-China Digital Economy Partnership have already strengthened cooperation in areas including digital infrastructure, e-commerce, smart cities, and emerging technologies. More recently, cooperation has begun to extend directly into artificial intelligence. The launch of the China-Asean Ministerial Roundtable on AI and the establishment of the China-Asean Artificial Intelligence Application Cooperation Center signal a growing commitment to collaboration on AI development, governance, talent cultivation, and technological innovation. These initiatives demonstrate that Asean-China cooperation is increasingly moving beyond broad digital connectivity towards concrete engagement on AI governance and capacity-building.

Cooperation is especially important in areas such as ethical AI standards, data governance, digital infrastructure, and capacity-building. While global discussions on transparency, accountability, privacy, and cybersecurity have advanced considerably, efforts to develop AI governance approaches that are broadly applicable across varying development contexts remain ongoing. Without stronger cooperation, regulatory fragmentation may deepen and technological disparities may widen. This concern is becoming increasingly relevant as countries adopt different approaches to AI governance and regulation. The China's evolving framework of generative AI and algorithmic governance regulations, and national AI initiatives across Asean (e.g., Malaysia's National AI Technology Action Plan 2026–2030, Singapore's National AI Strategy 2.0, and Indonesia's National Strategy for AI) reflect differing priorities, institutional capacities, and governance models. Thus, greater coordination can help promote interoperability, reduce compliance burdens, and facilitate innovation while respecting national circumstances and development needs.

Malaysia's opportunity to lead

Amid these developments, Malaysia occupies a uniquely important position. As a founding member of Asean and a longstanding partner of China, Malaysia is well placed to bridge different perspectives on AI governance.

The country's growing digital economy, commitment to innovation, and tradition of constructive diplomacy provide a strong foundation for leadership. Malaysia has already taken meaningful steps towards positioning itself within the global AI landscape. The establishment of the National AI Office (NAIO) and the implementation of the National AI Technology Action Plan 2026–2030 reflect the government's commitment to building a coordinated and future-ready AI ecosystem.

Malaysia is also well positioned to advance regional discussions on responsible AI, digital capacity-building, and inclusive technology development. As Asean seeks to strengthen its digital integration and AI readiness, Malaysia can leverage its relationships within the region and with key partners such as China to help ensure that development considerations remain central to emerging governance frameworks.

More importantly, Malaysia can advocate governance frameworks that place development alongside innovation, inclusivity alongside efficiency, and cooperation alongside competition. This role is especially significant at a time when geopolitical tensions often dominate discussions on emerging technologies. Malaysia can help foster dialogue that focuses not only on technological rivalry, but also on how AI can advance broader development goals across the region. Through Asean-China cooperation and the development-centered principles of the GDI, there is an opportunity to build a governance framework that is more inclusive, representative, and responsive to the needs of the developing world.

That opportunity will not remain open indefinitely. As AI technologies advance at remarkable speed, the window for meaningful participation in shaping global rules is narrowing. The future of AI governance is being written now. The question is whether enough voices are at the table before the ink dries.

Dr Nur Haryani Zakaria, is an Associate Professor at School of Computing, Universiti Utara Malaysia (UUM). The views expressed here are entirely the writer’s own.

The SEARCH Scholar Series is a social responsibility programme jointly organised by the Southeast Asia Research Centre for Humanities (SEARCH) and Tunku Abdul Rahman University of Management and Technology (TAR UMT).