Section 3 Counter-piracy Operations
Section
3
Counter-piracy Operations
Piracy is a grave threat to public safety and order on the seas. In
particular, for Japan, which depends on maritime transportation
to import most of the resources and food necessary for its survival and prosperity as a maritime nation, it is an important issue that cannot be ignored. The United Nations Convention on
1
the Law of the Sea states that all nations shall cooperate to the
fullest possible extent in the repression of piracy, so it is necessary for Japan to actively fulfill its international responsibilities
for counter-piracy operations as stipulated in the New NDPG.
Basic Approach
2
difficult or impossible for the JCG to cope with piracy by itself,
the SDF is to take action as well.
Chapter 3
The Japan Coast Guard (JCG), one of the law enforcement
agencies in Japan, is primarily responsible for coping with
piracy. However, in cases in which it is deemed extremely
Circumstances Surrounding Incidents of Piracy and Initiatives by the International Community
Fig. III-3-3-1 (Piracy Incidents Off the Coast of Somalia and in the Gulf
of Aden (Comparison with the number of incidents in Southeast Asia))
See
Fig. III-3-3-1 Piracy Incidents Off the Coast of Somalia and in the Gulf
of Aden (Comparison with the number of incidents in
Southeast Asia)
(Number of incidents)
250
200
150
158
170
102
100
50
0
21
03
237
218 219
Southeast Asia
Somalia and surroundings
45
10
04
05
128
83
20
06
104
111
70
54
07
70 80
75
45
44
08
Successive United Nations Security Council resolutions1,
such as United Nations Security Council Resolution 1816,
which was adopted in June 2008, have requested that various
countries take actions to deter piracy off the coast of Somalia
and in the Gulf of Aden; in particular, the dispatch of their warships and military aircraft.
To date, approximately 30 countries, including the United
States, have dispatched their warships to the waters off the
coast of Somalia and the Gulf of Aden. Moreover, in December
that year, the European Union (EU) decided to commence a
counter-piracy operation (Operation Atlanta), escorting vessels
transporting supplies for the United Nations World Food
Programme (WFP) and patrolling the waters in the area; in
addition, the North Atlantic Treaty Organization (NATO) has
been conducting its own counter-piracy operation (Operation
Ocean Shield) since August 2009.
All countries continue to treat piracy off the coast of
Somalia and in the Gulf of Aden as a matter of serious concern,
even now.
09
15
10
11
12
13
(Year)
Notes: 1. The data is based on a report by the International Maritime Bureau (IMB) of the
International Chamber of Commerce (ICC).
2. Regarding piracy cases that have occurred off the coast of Somalia and in the Gulf of
Aden in 2014, approximately 9 cases of piracy have been reported as of late April.
1
The other United Nations Security Council resolutions calling for cooperation in deterring piracy are Resolutions 1838, 1846, and 1851 (adopted in 2008), Resolution 1897 (adopted in 2009),
Resolutions 1918 and 1950 (adopted in 2010), Resolutions 1976 and 2020 (adopted in 2011), Resolution 2077 (adopted in 2012), and Resolution 2125 (adopted in 2013).
Defense of Japan
295
Active Promotion of Security Cooperation
Incidents involving pirates armed with machine guns and rocket
launchers who seek to take hostages for ransom have continued
to occur in waters off the coast of Somalia and in the Gulf of
Aden. Piracy off the coast of Somalia and in the Gulf of Aden
is a threat to the international community, including Japan, so it
is an issue that should be dealt with via cooperation among the
international community.
Part III Initiatives of Defense of Japan
3
1
Japanese Initiatives
Legislation Concerning Counter-piracy Operations
Chapter 3
Active Promotion of Security Cooperation
In March 2009, after receiving the approval of the Prime Minister
based on a Cabinet decision under the provisions of Article 82 of
the SDF Act, the Minister of Defense gave the order for Maritime
Security Operations in order to protect Japan-affiliated vessels
from acts of piracy in the waters off the coast of Somalia and in
the Gulf of Aden. Following this order, two Japanese destroyers
departed from Japan and began escorting Japan-affiliated vessels
in the same month. Moreover, to conduct more effective counterpiracy operations over an extensive marine area, an order was
given in May to dispatch P-3C patrol aircraft, and these aircraft
commenced warning and surveillance operations in the Gulf of
Aden in June the same year.
In view of the United Nations Convention on the Law of
the Sea, Japan subsequently enacted the Act concerning the
Punishment of Acts of Piracy and Measures to Deal with Acts
of Piracy (the Anti-Piracy Measures Act) in July the same year
in order to deal appropriately and effectively with acts of piracy.
This act made it possible to protect the vessels of all nations
from acts of piracy, regardless of their flag states; moreover, it
became possible to use weapons to a reasonable extent, if no
other means were available, in order to halt vessels engaging in
acts of piracy, such as approaching civilian vessels.
Furthermore, the Act on Special Measures concerning the
Security of Japanese Flagged Vessels in Areas that Are Highly
Susceptible to Acts of Piracy came into force on November 30,
2013, which made it possible to have security guards on board a
Japanese ship provided certain requirements are met, allowing
them to carry small arms for the purpose of security operations.
See
Reference 21 (Main Operations of the Self-Defense Forces);
Reference 22 (Statutory Provisions about the Use of Armed Force
and Weapons by SDF Personnel); Reference 57 (Outline of a Bill
Concerning Punishment of and Response to Acts of Piracy)
The Parliamentary Senior Vice-Minister of Defense Takeda Seeing off the Dispatched Flight Squadron for
Counter-piracy Operations in Hachinohe
2
296
2
Activities by the Self-Defense Forces
(1) Participation in CTF151
Although the number of acts of piracy occurring in the waters off
the coast of Somalia and in the Gulf of Aden declined substantially
in recent years, the root causes of piracy such as poverty in Somalia
have not been solved. In addition, considering the fact that Somalia’s
capability to crackdown on piracy is still not sufficient, and that the
criminal organizations responsible for piracy acts have not been
totally destroyed, the situation in the waters off the coast of Somalia
and in the Gulf of Aden remains unpredictable. If the international
community reduces its counter-piracy efforts, the situation could be
easily reversed. Moreover, the Japanese Shipowners’ Association
and other entities are still requesting that the SDF continue their
counter-piracy operations; in addition, international organizations
such as NATO and the EU have decided to continue their operations.
Therefore, there is no great change in the situation in which Japan
must carry out its counter-piracy operations.
In addition, due to the fact that the scope of the area susceptible to acts of piracy is spreading to areas off the coast of
Oman and the Arabian Sea in recent years, the area of activity
of the Combined Task Force 151 (CTF 151)2, which conducts
warning and surveillance activities (zone defense), is increasingly spreading. Thus the number of deployed vessels of other
countries in the Gulf of Aden decreases at certain times. Furthermore, the number of vessels that are directly escorted by
the SDF surface force per escort operation was gradually reduced (a method in which the destroyers guard the front and
rear of the convoy). In light of such a situation, in July of the
same year, Japan decided to participate in the CTF 151 to commence zone defense in addition to escort missions as before,
while coordinating closely with the units of other countries that
are engaged in counter piracy operations, for the purpose of
conducting more flexible and effective operations. Following
this, the surface force started zone defense in December 2013.
In addition, the air force have been participating in the CTF
151 since February 2014. This participation enabled the force
to acquire information that was previously not accessible, such
as other countries’ operation policies on flight squadrons and
environment analysis that contributes to counter piracy measures. Moreover, it became possible to conduct more flexible
warning and surveillance activities. For example, aircraft can
be deployed as needed even to areas that are highly susceptible
to acts of piracy, and as a result, coordination between other
countries’ counter piracy units was further enhanced.
Moreover, in July 2014, the SDF decided to dispatch a com-
The Combined Maritime Force (CMF), whose headquarters are located in Bahrain, announced that CTF151 was set up as a multinational task force for counter-piracy operations in January 2009.
DEFENSE OF JAPAN 2014
Section 3 Counter-piracy Operations
VOICE
Participating in the Multinational Combined Task
Force (CTF 151)
JMSDF Escort Division 4 (Kure City, Hiroshima Prefecture)
Captain (MSDF) Hiroaki Tajiri, Escort Division 4 Commander
(2) Achievements
At present, two destroyers have been dispatched, one of which
is in principle escorting civilian vessels back and forth across
the Gulf of Aden. The other destroyer is conducting zone
defense in the designated marine area within the Gulf of Aden.
3
4
Active Promotion of Security Cooperation
mander and command center staff to the CTF 1513. With SDF personnel serving as the CFT 151 commander and command center
staff, it becomes possible to facilitate coordination among units of
countries involved, including units participating in the CTF 151,
and more broadly gather information on counter-piracy operations
of other countries off the coast of Somalia and in the Gulf of Aden.
This enables Japan to enhance the effectiveness of the SDF’s
counter-piracy operations through strengthened coordination with
units of other countries engaged in counter-piracy operations.
Chapter 3
I assumed this post in December 2013 as part of the17th Counter-Piracy Marine Unit and served in this capacity until April
2014. In addition to the escort missions which the SDF has done, my unit has started to participate in Combined Task Force
151 (CTF 151).
CTF 151 is a multinational initiative led by the U.S. that seeks to address counter-piracy operations. Units from the
participating countries conduct surveillance (zone defense) for designated waters based on the laws of their country and in
coordination with CTF 151 headquarters.
When we received reports in January 2014 from a ship that had been attacked by pirates, aircraft was sent out from the destroyer Samidare on a search. It found and began tracking a suspicious vessel. The operation was later handed over to a P-3C patrol aircraft, a French naval vessel belonging to an EU unit. The suspicious vessel turned out to be of Indian registry and had been
boarded by pirates. The crew was safely released and the pirates arrested. Our success was the product of effective information
sharing and coordination among each country’s counter-piracy units, and was an achievement that demonstrated the consummate
professionalism on the part of each unit member
towards the missions they were given.
That same month our convoy was visited by
the Commander of CTF 151, Commodore Aage
Buur Jensen of the Royal Danish Navy. The visit
proved to be a valuable opportunity to exchange
views concerning improving information sharing
and cooperation towards making counter-piracy
operations more effective.
Today, despite the unforgiving conditions we
face so far away from Japan with temperatures
above 50 degrees Celsius and humidity close
to 100% on many of the days, we continued to
engage in counter-piracy operations to maintain
maritime traffic safety, contribute to the stability
and development of Japan, and help ensure peace
CTF 151 Commander and Commodore in the Royal Danish Navy (front row center) and
and stability among the international community.
Hiroaki Tajiri (front row, second from left)
The direct escort method firstly places the destroyer and private vessels to be escorted at the assembly point, one each designated at the eastern and western ends of the Gulf. When the convoy
sails across the Gulf of Aden, the destroyer guards the convoy; and
the helicopter carried on the destroyer also watches the surrounding area from the sky. In this way, the ships take around two days
to sail the 900km or so distance across the Gulf of Aden, all the
while making absolutely certain that the convoy is safe and secure,
day and night. Moreover, there are eight JCG officers aboard the
destroyers4 and the SDF cooperates with the JCG to enable them
to conduct judicial law enforcement activities, as required.
During the non-monsoon season (March–May, September–November), when the area within which acts of piracy
become active because of the calmer seas, the escort route is
extended by approximately 200km to the east.
Going forward, time for dispatching, etc. is to be decided upon coordinating with Combined Maritime Forces (CMF)
If required, they conduct judicial police activities, such as arresting and questioning pirates.
Defense of Japan
297
Part III Initiatives of Defense of Japan
Fig. III-3-3-2 SDF’s Counter-Piracy Operations
Activities with deployment of one for escort and one for defense zone as
a basis.
Japan’s original framework is used for escort, while for defense it is
implemented by participating in the CTF151.
*The relationship between the CTF151 Headquarters and participating units
is a relationship of coordination.
Deploy one for escort
Point C
Deploy one for
Defense Zone
Point B
0 Km
,10
ut 1
Abo
* Conducting escort between point A
and point B during the monsoon season
(June-August, December-February)
Conducting warning and surveillance operations,
and Information collection and provision
Chapter 3
Djibouti
●
0 Km
ut 20
Abo
Point A
Gathering
Information
Sharing
Information
Active Promotion of Security Cooperation
CTF151
• Established in January 2009 for counter-piracy
operations. The U.S., Australia, UK, Turkey, ROK,
Pakistan, etc. participated
• Participants are to be engaged in operations
upon liaison coordination on deployment dates,
etc. with the Command.
On the other hand, in zone defense, an operation area is allocated to each destroyer based on the coordination with the CTF
151 headquarters. The destroyer conducts warning and surveillance activities within the allocated area, and contributes to improve security for all countries’ vessels, including those of Japan.
As of May 31, 2014, 3461 vessels have been escorted under
the protection of the destroyers. Not a single vessel has come to any
harm from pirates and they have all passed safely across the Gulf of
Aden. In this body of water, which is a major artery for the economy
not only of Japan, but also of the world, the escort activities undertaken by the SDF provide a tremendous sense of security.
The destroyer “Ariake” escorting civilian vessels
298
DEFENSE OF JAPAN 2014
Escorted ships
Merchant ship
Suspicious vessel
See
Deployed Maritime
Force for AntiPiracy Operations
Fig. III-3-3-2 (SDF’s Counter-Piracy Operations)
In addition, the maritime patrol aircraft (P-3C) based in the
Republic of Djibouti make use of their excellent cruising capability
in conducting surveillance operations in the vast Gulf of Aden. The
flight zone is determined based on coordination with CTF151 headquarters. The P-3Cs taking off from Djibouti watch whether there
are suspicious boats among the numerous ships navigating in the
Gulf. At the same time, they provide information to the destroyers
engaging in escort activities, the naval vessels of other countries and
civilian vessels sailing through the area, responding by such means
as confirming the safety of the surrounding area immediately, if
requested. The SDF, which has dispatched two P-3Cs, conducts
warning and surveillance activities in the Gulf of Aden, while cooperating with other countries who have also dispatched maritime
patrol aircraft to the area. This activity accounts for 60% of warning
and surveillance conducted by each country in the maritime area.
The information gathered by SDF P-3Cs is constantly
shared with CTF151 or other related organizations, and contributes significantly to deterring acts of piracy and disarming
vessels suspected of being pirate ships.
Since commencing duties in June 2009, the aircraft have
flown 1,140 missions as of June 30, 2014, and their flying hours
total 8,820 hours. Approximately 92,700 ships have been identified and information has been provided to vessels navigating
Section 3 Counter-piracy Operations
Fig. III-3-3-3 Structure of the Deployed Forces
Structure of the Deployed Forces
: Structured by MSDF personnel
: Structured by MSDF and GSDF personnel
Commander, Self Defense Fleet
Commander, Deployed Air Force for
Counter Piracy Operations
Commander, Deployed Maritime Force
for Counter Piracy Operations
Headquarters
Headquarters
1 destroyer
Support and
logistics units
Operation units
Guard units
Military Police
units
Chapter 3
Special Boarding Unit personnel aboard
1 or 2 patrol helicopters, as well as 1 or 2 special
boats, on each vessel
Coast Guard Officers: 8 officials aboard
Headquarters
Squadron
(2 P-3Cs)
1 destroyer
Commander, Deployment Support Unit for
Counter Piracy Enforcement In addition, transport units comprised of C-130H
transport aircraft under the Air Support Commander
will provide airborne transportation of materials etc.
when necessary.
Total approx. 70 personnel
Total approx. 110 personnel
(about 40 maritime, about 70 ground)
* Other than the units above, a unit comprising of SDF personnel (within 20 personnel) serving CTF151 Commander and Commander center staff will be structured.
the area and other countries engaging in counter-piracy operations on around 9,620 occasions.
Moreover, in order to improve the operational efficiency and
effectiveness of the Deployment Airforce for Counter Piracy Enforcement, the Ministry of Defense and SDF has set up the base in
the northwest district of the Djibouti International Airport, which
started its operation in June 2011. Although this force is mainly
composed of the MSDF personnel, P-3Cs and other equipment are
guarded by the GSDF personnel at the base. In addition, the ASDF
personnel to the headquarters are also involved in this force.
In addition, the Deployment Support Unit for Counter Piracy
Enforcement, which is engaged in operations necessary for SDF
personnel to carry out counter-piracy operations, is made up of
MSDF and GSDF personnel, and GSDF personnel provide
security for P-3C patrol aircraft and other equipment at operational
bases in Djibouti, and also serve as the unit’s command center
staff. Furthermore, the ASDF has formed an airlift squadron to
support these activities, consisting of transport aircraft (C-130H)
and aerial refueling/transport aircraft (KC-767), which is engaged
4
in transport missions. Also, the local coordination center in
Djibouti is in charge of communication and coordination with the
government of Djibouti and other foreign units/organizations.
See
Fig. III-3-3-3 (Structure of the Deployed Forces)
Minister of Defense Itsunori Onodera meeting with the personnel of the counter piracy
enforcement force in Djibouti.
Praise for Japan’s Endeavors
The counter-piracy operations by the Japan SDF have been
highly praised by the international community, with national
leaders and others expressing their gratitude. Moreover, the
MSDF, which is engaging in counter-piracy operations off the
coast of Somalia and in the Gulf of Aden, has received many
messages from the captains and shipowners of the vessels that
its units have escorted, expressing their gratitude that the ships
were able to cross the Gulf of Aden with peace of mind and
asking them to continue escorting ships there. From the 1st to
the 17th unit, a total of 2,700 messages have been received.
Defense of Japan
299
Active Promotion of Security Cooperation
Total approx. 400 personnel