ー　 Through a lens of Capacity-Building 　－

4 March 2011

Col Nobutaka MINAMIKAWA, JGSDF

Visiting Fellow, The Henry L. Stimson Center

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

Contents

The views expressed here are those of The views expressed here are those of NobutakaNobutaka MINAMIKAWAMINAMIKAWA..Nothing spoken here reflects the views of the Henry L. Stimson Center, Nothing spoken here reflects the views of the Henry L. Stimson Center, the Japan Ground Self Defense Force, Ministry of Defense, or the Japan Ground Self Defense Force, Ministry of Defense, or Government of Japan. Government of Japan.

１　 Situations surrounding JGSDF IPCA

２　 Ongoing Activities of JGSDF IPCA

３　 Evaluation of JGSDF IPCA

JGSDF’s past efforts in IPCA

International Peace Cooperation Activities

International Disaster Relief Activities

Cooperation in Efforts toward the Reconstruction of Iraq

Activities to Respond International Terrorism

Legend ：　　　　　　　 shows activities based on permanent laws

　　　　　　　　　　　　　 shows activities based on time-limited laws 　

Activities based on the “Law Concerning Japan’s Cooperation in the U.N. Peacekeeping Activity and other Activities” (so-called “PKO Cooperation Law”)

Activities based on the “Law Concerning the Dispatch of International Disaster Relief Teams” (so-called “International Disaster Relief Law”)

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 based on the “Replenishment Support Special Measures Law” (Ended in Jan. 2010)

Anti-Piracy Activities

Activities based on the “Law on Penalization of Acts of Piracy and Measures against Acts of Piracy” (known as “Anti-Piracy Special Measures Law”)

International Peace Cooperation Mission

International Peace Cooperation Activities Conducted by the SDF International Peace Cooperation Activities Conducted by the SDF

UN PKOInternational disaster relief activities International Humanitarian Assistance ActivitiesOthersRed letters : currently operating

IDRA(Honduras)

1998

HRA(Rwanda)

1994

IDRA(Sumatra Island)

2005

IDRA (India)

2001

ＵＮＴＡＣ(Cambodia)1992-1993

HRA(Iraq)

2004-2006

IDRA (Pakistan)

2005

IDRA (Java Island)

2006

UNDOF(Golan Heights)

1996-

UNMIS(Sudan)

2008-

UNMISET(East Timor)2002-2004

Anti-Piracy(Djibouti)

2009-

IDRA(Sumatra Island)

2009

UNMIN(Nepal)2007-

IDRA(Haiti)2010

MINUSTAH(Haiti)2010

ONUMOZ(Mozambique)

1993-1995IDRA

(Pakistan)2010

UNMIT(East Timor)2010 -2011

IPCA conducted by JGSDFIPCA conducted by JGSDF

【 Anti-Piracy activities 】Mission: Base management & force protection (62)

【 UNDOF 】Mission: HQ Staff and　　 Logistic support (50)

【 MINUSTAH 】Mission: HQ staff &Reconstruction (approx.350)

Golan HeightsKhartou

mDjibouti

Haiti

East Timor

Current ActivitiesCurrent Activities

About 450 personnel currently on duty abroad

【 UNMIS 】Mission: HQ Staff (2)

【 UNMIT 】Mission: Military liaison officer (2)

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)

Golan Heights 【 UNDOF 】

Japan’s SDF has shown outstanding performance in helping the affected people in Pakistan. President Musharraf(Nov., 2005) 　

Pakistan 【 DR in Major Earthquakes in Pakistan 】

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 ）

Iraq 【 Humanitarian and Reconstruction Assistance in Iraq 】

　 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.

Evaluations of JGSDF IPCAEvaluations of JGSDF IPCA

１　 Significance of NDPG

２　 Major Points of the 2010 NDPG

３　 Implications for IPCA

New Defense Program Guidelines and its implication for SDF’s IPCA

National DefenseProgram Guidelines

Mid-termDefense 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

　　

○ 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.

Status and significance

Relations among NDPG, MTDP and Annual Budget

FY

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015 ･･･

ND

PG

MTD

P

2010 NDPG

2005 MTDP 2011 MTDP2001 MTDP

1995 NDPG

1996 MTDP

2004 NDPG

“FY2010 Defense Capability Arrangements, etc.” approved by the Cabinet

1. “Dynamic Defense Force” Concept

2. Enhance and Develop Japan-U.S. Alliance, Stabilize Asia-Pacific Region

3. Enhance response capabilities for contingencies in offshore island area

4 Promote global security cooperation

5 Identify Political Issues

Focus on how to better operate the SDF Focused on Readiness, Mobility, Flexibility, Sustainability, Multi-functionality

Articulate Japan-U.S. cooperation measure more concretely Emphasize “Stabilizing Asia-Pacific region security” as core defense role

Prevent a power vacuum by deploying SDF unit Strengthen and maintain the capability for the defense of sea/air space surrounding Japan Deploy new SDF unit strategically and enhance its ability for rapid deployment and response.

Major Points of 2010 NDPGMajor Points of 2010 NDPG

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

Promote bilateral/multilateral cooperation Develop the capability for capacity-building

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 non- traditional 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 for participation in peace-keeping operations.

Excerpts on IPCA from 2010NDPG① Excerpts on IPCA from 2010NDPG①

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 2010NDPG② Excerpts on IPCA from 2010NDPG②

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 2010NDPG③Excerpts on IPCA from 2010NDPG③

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

Excerpts on IPCA from 2010NDPG④Excerpts on IPCA from 2010NDPG④

１　 What is “Capacity Building”?

２　 The role of the military in Capacity Building

３　 The role of SDF in Capacity Building

The role of SDF in 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.

What’s Capacity Building ？What’s Capacity Building ？

Similar to solving a complex puzzle. There are 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.

　 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.

state

Image of Capacity Building①Image of Capacity Building①

Establish government and

the DietSecurity sector

reform

Bring up human

resources

Construct infrastructures

Establish systems

(medical, finance, education, economy)

Training and

education

for military

SecureSecurity

andsafety

ConstructInfra.

Bring up HR

Fragilestates

ConstructInfra.

Establish government

and the legislature

Build upCapability

Of DR

Establishsystems

Stable Operationof state

Lifesavingand

Disaster restoration

bad

good

peace

　 　　 The goal of capacity building is to enable a nation-state to operate stably. 　　 There are various approaches to reach this objective.

Image of Capacity Building②Image of Capacity Building②

countries suffering

from LSND

Developing countries

LegendsInfra. : infrastructureHR : human resourceDR : disaster Relief operationsLSND: large-scale natural disaster

○ 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.

○ 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 the Military in Capacity BuildingRoles of the Military in Capacity Building

Features of Military

Roles of Military in Capacity Building

○ 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.

Features of SDF in Capacity BuildingFeatures of SDF in Capacity Building

○ 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. 　

Considerations of GSDF’s activities

Features of SDF

　 There are 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 High-level exchange.

SupportRequests

　　 Thai 　　 Vietnam 　

Cambodia 　

Brunei 　

Indonesia 　 East Timor 　

JAPAN 　　

　　　　

　　　　

　　　　

　　

Concrete examples　

Requests from nations in Southeast AsiaRequests from nations in Southeast Asia

BruneiEducation for HA/DR

CambodiaSupport for disposal of landmines and unexploded shells, DR operation and IPCA

IndonesiaSupport to improve anti-piracy capability

ThaiSupport for training in military techniques and school, DR operations.

East TimorSupport for DR operations

VietnamSupport for Counter-Terrorism, HA/DR, IPCA, military, medical

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

Challenges for More Effective Activities

Restriction on “the integration with use of force”Restriction on “the integration with use of force”

　　 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.

　 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.

The integration with the use of force

The Right of Collective Self-Defense

○ 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.

○ 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”.

On Apr. 21, 1967, then Prime Minister Eisaku Sato declared at the House of Representatives’ Audit Committee meeting.

On Feb. 27, 1976, then Prime Minister Takeo Miki announced the Government’s view at House of Representatives’ Budget Committee meeting.

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.

：

Restriction on Three Principles on Arms ExportsRestriction on Three Principles on Arms Exports

Strengthen relationship among the relevant organizationsStrengthen relationship among the relevant organizations

Cabinet Office

MOFA MOD

ＮＧＯ

ＮＧＯ

ＮＧＯ

Enterprise

The government offices concerned

○ Strengthen function of Prime Minister’s Official Residence (Kantei) and relationship among other relevant organizations○ 　 Plan strategically and implement the activities

The government offices concerned

Improve Japan-US Cooperation in IPCAImprove Japan-US Cooperation in IPCA

○ 　 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.

Current situation 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

Challenges of Japan-US Cooperation

Conclusion

ConclusionConclusion

○ “ 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 　　　　　

Matters under consideration in Japan

○From “first step” of MOD/SDF to “upgrade” as activities conducted by Japan○To enhance Japan-US cooperation in IPCA including capacity-building

CapacityBuilding

Defense Exchange

International Peace Cooperation

Activities

Questions?

Enhancing response capabilities for IPCA Enhancing response capabilities for IPCA 　　

Direction of build-up

【 New posture of CRF 】

CRF HQ Other unitsIPCATU

H& HS Co Engr Co

CRF

CRR

Infantry Co

Enhancing Rear Area functions (Medical & Logistics)

Enhancing Engineering functions

Attaching Capacity building function to IPCA Training Unit, etc.

Enhancing coordination with branch schools

31