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
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
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
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)
2009UNDOF
(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
“FY2010 Defense Capability Arrangements, etc.” approved by the Cabinet
2015
･･･
Major Points of 2010 NDPG
1. “Dynamic Defense Force” Concept
 Focus on how to better operate the SDF
 Focused on Readiness, Mobility, Flexibility, Sustainability, Multi-functionality
2. Enhance and Develop Japan-U.S. Alliance, Stabilize Asia-Pacific Region
 Articulate Japan-U.S. cooperation measure more concretely
 Emphasize “Stabilizing Asia-Pacific region security” as core defense role
3. Enhance response capabilities for contingencies in offshore island area
 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.
4 Promote global security cooperation
 Promote bilateral/multilateral cooperation
 Develop the capability for capacity-building
5 Identify Political Issues
 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 2010NDPG①
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
for participation in peace-keeping operations.
Excerpts on IPCA from 2010NDPG②
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 2010NDPG③
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 2010NDPG④
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 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.
state
Training and
education
Establish systems
for military
(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
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 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 Highlevel exchange.
Concrete examples
JAPAN
Support
Requests
Thai
Brunei
Education for HA/DR
Cambodia
Support for disposal
of landmines and
unexploded shells, DR
operation and IPCA
Indonesia
Support to improve
anti-piracy capability
Vietnam
Thai
Support for training in
military techniques and
school, DR operations.
Cambodia
Brunei
East Timor
Support for DR
operations
Indonesia
East Timor
Vietnam
Support for CounterTerrorism, 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
CRF HQ
H& HS Co
Enhancing Rear Area
functions (Medical &
Logistics)
 Attaching Capacity building
function to IPCA Training Unit, etc.
 Enhancing coordination with
branch schools
CRR
IPCATU
Infantry Co
Engr Co
Other units
Enhancing Engineering
functions
31