ー Through a lens of Capacity-Building － 4 March 2011 Col Nobutaka MINAMIKAWA, JGSDF Visiting Fellow, The Henry L. Stimson Center
Contents １ Japan Ground Self-Defense Force’s Past Efforts in International Peace Cooperation Activities (IPCA) ２ New Defense Program Guidelines and its implication for SDF’s IPCA ３ Roles of SDF in Capacity Building ４ Challenges for More Effective Activities ５ Conclusion The views expressed here are those of Nobutaka MINAMIKAWA. Nothing spoken here reflects the views of the Henry L. Stimson Center, the Japan Ground Self Defense Force, Ministry of Defense, or Government of Japan.
JGSDF’s past efforts in IPCA １ Situations surrounding JGSDF IPCA ２ Ongoing Activities of JGSDF IPCA ３ Evaluation of JGSDF IPCA
International Peace Cooperation Activities Conducted by the SDF International Peace Cooperation Mission International Peace Cooperation Activities based on the “Law Concerning Japan’s Cooperation in the U. N. Peacekeeping Activity and other Activities” (so-called “PKO Cooperation Law”) International Disaster Relief Activities based on the “Law Concerning the Dispatch of International Disaster Relief Teams” (so-called “International Disaster Relief Law”) Cooperation in Efforts toward the Reconstruction of Iraq Activities based on the “Law Concerning Special Measures on Humanitarian and Reconstruction Assistance and Support Activities for Ensuring Security of Iraq” (known as the Iraq Reconstruction Special Measures Law) (Ended in Feb. 2009) Activities to Respond International Terrorism Activities based on the “Replenishment Support Special Measures Law” (Ended in Jan. 2010) Anti-Piracy Activities based on the “Law on Penalization of Acts of Piracy and Measures against Acts of Piracy” (known as “Anti-Piracy Special Measures Law”) Legend： shows activities based on permanent laws shows activities based on time-limited laws
IPCA conducted by JGSDF IDRA (India) 2001 Anti-Piracy (Djibouti) 2009 UNDOF (Golan Heights) 1996 - HRA (Iraq) 2004 -2006 UN PKO International disaster relief activities International Humanitarian Assistance Activities Others Red letters : currently operating IDRA (Haiti) 2010 UNMIN (Nepal) 2007 - UNMIS (Sudan) 2008 - ＵＮＴＡＣ (Cambodia) 1992 -1993 IDRA (Honduras) 1998 UNMIT (East Timor) 2010 -2011 HRA (Rwanda) 1994 UNMISET (East Timor) 2002 -2004 IDRA (Pakistan) 2005 ONUMOZ (Mozambique) 1993 -1995 IDRA (Pakistan) 2010 IDRA (Sumatra Island) 2009 IDRA (Sumatra Island) 2005 IDRA (Java Island) 2006 MINUSTAH (Haiti) 2010
Current Activities 【UNDOF】 Mission: HQ Staff and Logistic support (50) 【Anti-Piracy activities】 Mission: Base management & force protection (62) 【MINUSTAH】 Mission: HQ staff & Reconstruction (approx. 350) Golan Heights Khartoum Haiti Djibouti East Timor 【UNMIS】 Mission: HQ Staff (2) 【UNMIT】 Mission: Military liaison officer (2) About 450 personnel currently on duty abroad
Evaluations of JGSDF IPCA Iraq 【Humanitarian and Reconstruction Assistance in Iraq】 The Iraqi people will never forget Japan’s contribution to the reconstruction and stability of Iraq, including the dispatch of the SDF, during this time of difficulties which Iraq has faced. President Talabani（Jan. , 2009） Golan Heights 【UNDOF】 The SDF’s activities in the past decade were superb, as they showed professionalism in every part of the operation. UNDOF Force Commander LTG Sharma(Jan. , 2006) Pakistan 【DR in Major Earthquakes in Pakistan 】 Japan’s SDF has shown outstanding performance in helping the affected people in Pakistan. President Musharraf(Nov. , 2005) International society has highly appreciated the SDF’s IPCA, which are based on the Japanese style of trying to share the perspectives of local people.
New Defense Program Guidelines and its implication for SDF’s IPCA １ Significance of NDPG ２ Major Points of the 2010 NDPG ３ Implications for IPCA
Status and significance ○ GOJ set the basic principles of Japan’s security policy and the target levels of defense equipment for the first time in the 1976 National Defense Program Guidelines (NDPG) and formulated Mid-term Defense Program (MTDP) for next 5 years under “the frame of 1% of GNP. ” GOJ has conducted defense build-up based on the MTDP ever since. . ○ Both NDPG and MTDP are documents that are approved by the cabinet council. Relations among NDPG, MTDP and Annual Budget National Defense Program Guidelines Mid-term Defense Program Annual Budget Vision for future direction of defense policy, and the target levels of defense capabilities to implement the new policy. Maximum sum of cost in 5 years and numbers of main equipment Appropriate necessary costs annually
F Y 1996 1997 1998 1999 2000 2001 2002 2003 2004 NDPG 1995 NDPG MTDP 1996 MTDP 2001 MTDP 2005 2006 2007 2008 2009 2004 NDPG 2005 MTDP 2010 2011 2012 2013 2014 2010 NDPG 2011 MTDP “FY 2010 Defense Capability Arrangements, etc. ” approved by the Cabinet 2015 ･･･
Major Points of 2010 NDPG 1. “Dynamic Defense Force” Concept Ø Focus on how to better operate the SDF Ø Focused on Readiness, Mobility, Flexibility, Sustainability, Multi-functionality 2. Enhance and Develop Japan-U. S. Alliance, Stabilize Asia-Pacific Region Ø Articulate Japan-U. S. cooperation measure more concretely Ø Emphasize “Stabilizing Asia-Pacific region security” as core defense role 3. Enhance response capabilities for contingencies in offshore island area Ø Prevent a power vacuum by deploying SDF unit Ø Strengthen and maintain the capability for the defense of sea/air space surrounding Japan Ø Deploy new SDF unit strategically and enhance its ability for rapid deployment and response. 4 Promote global security cooperation Ø Promote bilateral/multilateral cooperation Ø Develop the capability for capacity-building 5 Identify Political Issues Ø Tackle political issues, such as the establishment of a national security council, revise the 5 Principles for participation in UN Peace Keeping from a new point of view
Excerpts on IPCA from 2010 NDPG① Ⅰ NDPG’s Objectives Ⅱ Basic Principles of Japan’s Security Policy Japan will participate more actively in activities in which the international community cooperates (here in/after referred to as “international peace cooperation activities”), to improve the international security environment, including United Nations peace-keeping activities and activities to deal with non-traditional security issues, such as humanitarian assistance, disaster relief and counter-piracy initiatives. Ⅲ Security Environment Surrounding Japan The role of military forces in the international community is becoming increasingly diverse. In addition to deterring or responding to armed conflicts and building confidence and promoting friendship among countries, military forces, in cooperation with the non-military sector, are playing an important role in a growing number of cases, in conflict prevention, peace building such as reconstruction assistance, and in the nontraditional security field. Ⅳ Basic Policies to Ensure Japan’s Security １ Japan’s Own Efforts Japan will participate in international peace cooperation activities in a more efficient and effective manner. Taking into consideration the actual situations of UN peace-keeping operations, Japan will consider how it will participate in future peace-keeping operations, by examining current policies such as the five principles
Excerpts on IPCA from 2010 NDPG② ２ Cooperation with its Ally Japan will strengthen various regular cooperation, such as joint training and joint/shared usage of facilities, and promote regional and global cooperation through international peace cooperation activities, maintenance and enhancement of international public goods such as outer space, cyberspace and sea lanes, as well as in the field of climate change. ３ Multi-layered Security Cooperation with the International Community ○ Concerning multilateral security cooperation, through such frameworks as the ASEAN Regional Forum (ARF) and the ASEAN Defense Ministers' Meeting Plus (ADMM Plus), Japan will play an appropriate role in efforts toward establishing regional order, norms and practical cooperative relationships, particularly through initiatives in the non-traditional security field. ○ Japan will actively engage in diplomatic efforts, including the strategic and effective use of Official Development Assistance (ODA), in order to resolve root causes of conflicts and terrorism. Along with these diplomatic efforts, Japan will robustly engage in international peace cooperation activities. In doing so, Japan will strive to provide assistance which makes use of its knowledge and experience and will conduct such activities strategically, while comprehensively taking into account the various conditions surrounding it.
Excerpts on IPCA from 2010 NDPG③ Ⅴ Future Defense Forces １ Roles of Defense Forces （１）Effective deterrence and response （２）Efforts to further stabilize the security environment of Asia-Pacific region. In non-traditional security fields, Japan will promote practical cooperation by utilizing SDF capabilities, including disposal of landmines and unexploded shells. Japan will also strive to establish and strengthen regional cooperation practice and support the capacity building of countries in the region. （３）Efforts to improve the global security environment. Japan will continue to actively participate in international peace cooperation activities. Japan will also actively engage in various activities conducted by the United Nations and other organizations such as support for capacity building. ２ Self-Defense Forces : Force Posture The SDF will strive to enhance capabilities and posture applicable to diverse missions, rapid deployment and long- term operations so it can actively participate in international peace cooperation activities.
Excerpts on IPCA from 2010 NDPG④ ３ Self-Defense Force : Organization, Equipment and Force Disposition. ○ The SDF will enhance its capabilities for international peace cooperation activities by upgrading equipment, strengthening maritime and air transport capability, enhancing its logistical support posture, enhancing its engineering and medical functions, and reinforcing its education and training systems. ○ The SDF will improve the system for providing appropriate intelligence support for activities conducted in remote areas through such measures as strengthening capabilities to collect geospatial information, so as to enable SDF units dispatched abroad to perform missions smoothly and safely. ○ The GSDF will maintain mobile operating units sustaining specialized functions so that it can effectively perform international peace cooperation activities. ○ The ASDF will maintain air transport units and aerial refueling/transport units which enable effective international peace cooperation Activities. Ⅵ Basic Foundations to Maximize Defense Capability In contributing to peace and promoting cooperation in international community, there are increasing opportunities to conduct effective cooperation activities through measures such as the utilization of heavy machinery and other defense equipment carried to the site by the SDF and providing equipment to disaster-stricken countries. Ⅶ Additional Elements for Consideration
The role of SDF in Capacity Building １ What is “Capacity Building”? ２ The role of the military in Capacity Building ３ The role of SDF in Capacity Building
What’s Capacity Building？ Capacity Building is the creation of an enabling environment with appropriate policy and legal frameworks, institutional development, including community participation, human resources development and strengthening of managerial systems, and capacity building is a long-term, continuing process. Recipients of the capacity building assistance are fragile states (collapsed states, states in/after civil war), developing countries, countries and regions that have suffered from large-scale natural disasters, countries that will enable world and regional stability and security to take effect (including local authorities). Donors are U. N. , other international organizations, nations (government organizations, militaries) NGO, Commercial companies and so on. Capacity Building is hoped to prevent fragile states from being security risks like a hotbed of terrorism, and to strengthen cooperative relationships between donees and donors.
Image of Capacity Building① Similar to solving a complex puzzle. There a lot of parts based on the situation of recipients. Donors solve the puzzle with parts in order to improve the situation. Those parts are look like they are similar, but they are infinitely various and complex, because of race, religion, custom, history and so on. state Training and education for military Establish systems (medical, finance, education, economy) Bring up human resources Security sector reform Establish government and the Diet Construct infrastructures Capacity building is activities that build up the capability of the state to operate. It is very important that Donors work in cooperation in fields with which each nation is proficient.
Image of Capacity Building② peace bad Fragile states countries suffering from LSND Developing countries good Establish Secure Security government and safety the legislature Lifesaving and Disaster restoration Construct Infra. Bring up HR Construct Infra. Build up Capability Of DR Establish systems Stable Operation of state Legends Infra. : infrastructure HR : human resource DR : disaster Relief operations LSND: large-scale natural disaster The goal of capacity building is to enable a nation-state to operate stably. There are various approaches to reach this objective.
Roles of the Military in Capacity Building Features of Military ○ Combat power (military can secure security and safety with its own capability. ） ○ Self-sufficient (military can conduct long-term activities by themselves. ） ○ Multi-functionality （military can conduct various medical, transport (land/sea/air）, engineering, training and education activities. ） Roles of Military in Capacity Building ○ Securing safety in order to enable the activities for themselves and others. ○ Medical support, building up infrastructure, transportation support, education and so on in the early stages of commitment. ○ Training the country’s military forces and security police.
Features of SDF in Capacity Building Features of SDF ○ Combat power (although there are strict restriction against the use of weapons. ) ○ Self-sufficiency and Multi-functionality SDF has a lot of experience in IPCA, especially in providing medical services, transportation, engineering, disposal of unexploded shells and so on. SDF has the know-how to conduct disaster relief operations, as a country where natural disasters occur frequently. ○ SDF is one of the most advanced forces in the Asia-Pacific Region. Considerations of GSDF’s activities ○ Area of activities are limited to non-combat areas. ○ Activities utilize GSDF’s experience and know-how. ○ Activities in Asia-Pacific, especially in South-East Asia, region are advisable.
Requests from nations in Southeast Asia There a lot of requests on HA/DR, anti-piracy, disposal of landmines and unexploded shells, and so on from developing countries, especially in South-East Asia, to Japan through Highlevel exchange. Concrete examples JAPAN Support Requests Thai Cambodia Support for disposal of landmines and unexploded shells, DR operation and IPCA Indonesia Support to improve anti-piracy capability Vietnam Cambodia Brunei Indonesia Brunei Education for HA/DR East Timor Thai Support for training in military techniques and school, DR operations. East Timor Support for DR operations Vietnam Support for Counter. Terrorism, HA/DR, IPCA, military, medical
Challenges for More Effective Activities １ Restriction on “the integration with use of force” ２ Restriction on the Three Principles on Arms Exports ３ Strengthening relationships among the relevant organizations ４ Through a lens of the Japan-US Cooperation
Restriction on “the integration with use of force” The Right of Collective Self-Defense Since Japan is a sovereign state, it naturally has the right of collective self-defense under international law. Nevertheless, the Japanese Government believes that the exercise of the right of collective self-defense exceeds the minimum necessary level of self-defense authorized under Article 9 of the Constitution and is not permissible. The integration with the use of force Under the Constitution, SDF is not permitted to conduct an activity that may be considered as integrated with the use of force when it is not under direct attack. There are similar restrictions when SDF cooperates with other countries in IPCA. In capacity building, however, individual activities (for instance training of the armed forces, rifle training, combat training, etc) needs to be considered on a case-by-case basis.
Restriction on Three Principles on Arms Exports On Apr. 21, 1967, then Prime Minister Eisaku Sato declared at the House of Representatives’ Audit Committee meeting. ○ Communist Bloc countries ○ Countries to which arms export is prohibited under the U. N. resolutions ○ Countries which are actually involved or likely to become involved in international conflicts. On Feb. 27, 1976, then Prime Minister Takeo Miki announced the Government’s view at House of Representatives’ Budget Committee meeting. ○ The export of “arms” to the areas subject to the Three Principles shall not be permitted. ○ The export of “arms” to areas other than the areas subject to the Three Principles shall be restricted in line with the spirit of the Constitution and the Foreign Exchange and Foreign Trade Control Law. ○ Equipment related to arms production shall be treated in the same category as “arms”. ○ Moreover arms referred to in the Three Principles on Arms Exports are ◆ those that are used by the military forces and directly employed in combat. ◆ Such equipment as destroyers, fighters and tanks that move, intrinsically carrying firearms, for purposes of directly killing and injuring peoples or destroying things as a means of armed struggle, are considered “arms”. ： Equipment of SDF are interpreted as “arms” under the Three principles on Arms Export. Therefore SDF must carry back all equipment sent abroad each time.
Strengthen relationship among the relevant organizations ＮＧＯ Enterprise The government offices concerned ＮＧＯ Cabinet Office MOFA MOD The government offices concerned ＮＧＯ ○ Strengthen function of Prime Minister’s Official Residence (Kantei) and relationship among other relevant organizations ○ Plan strategically and implement the activities
Improve Japan-US Cooperation in IPCA Current situation of Japan-US Cooperation ○ Guidelines for Japan–US Defense Cooperation in 1997 ◇Main focus on the defense of Japan and stability in Northeast Asia. ◇There are statements about cooperation in peace time ・ ”The close cooperation for mutual support as necessary to improve the International security environment” as a principle ・ Cooperation in UNPKO and HA/DR is conducted as the need arises. ○ Acquisition and Cross-Servicing Agreement（ＡＣＳＡ） ◆ Applied for Defense of Japan, Response to Situations in Areas Surrounding Japan, IPCA and Bilateral Training ◆ Not applied for HA/DR ○ Cooperation in IPCA Iraq humanitarian assistance and reconstruction activity, HA/DR in Pakistan and Haiti and Anti-Piracy Activity in Djibouti. ○ Bilateral Training in peace time Main efforts on defense of Japan, there are Cobra Gold Exercise and Pacific Partnership as others. Challenges of Japan-US Cooperation ○ Cooperation in IPCA is not enough compare with the defense of Japan ○ For the future, it is necessary to promote Japan-US cooperation in: 【concrete tools】 ・ the application of ASCA ・ strengthening Bilateral Training To utilize existing bilateral and multilateral frameworks in order to increase training opportunities, especially effective utilization of ASEAN and ARF
Conclusion
Conclusion Matters under consideration in Japan ○ “General law” that governs IPCA ○ 5 Principles for participation in U. N. peacekeeping forces ○ 3 Principles on Arms Exports ○ Application of Japan-US ACSA in International Disaster Relief Activities ○ Efforts in new IPCA International Peace Capacity Building Cooperation Activities Defense Exchange ○From “first step” of MOD/SDF to “upgrade” as activities conducted by Japan ○To enhance Japan-US cooperation in IPCA including capacity-building
Questions?
Enhancing response capabilities for IPCA Direction of build-up 【New posture of CRF】 CRF HQ H& HS Co Enhancing Rear Area functions (Medical & Logistics) p Attaching Capacity building function to IPCA Training Unit, etc. p Enhancing coordination with branch schools CRR IPCATU Infantry Co Other units Engr Co Enhancing Engineering functions 31
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