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THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S FINDING THE RIGHT MIX Disaster Diplomacy, National Security, and International Cooperation January 2009 e Institute for Foreign Policy Analysis Finding the Right Mix Key Partnerships and Platforms for a International Cooperation FINDING THE RIGHT MIX Disaster Diplomacy, National Security, and International Cooperation Charles M. Perry with Marina Travayiakis Bobby Andersen Yaron Eisenberg January 2009 A Publication by e Institute for Foreign Policy Analysis Contents Illustrations v Acknowledgments vii Introduction 1 References 4 The U.S. Foreign Disaster Response Process 5 State as the Lead Federal Agency 6 Requesting Department of Defense and Military Assistance 10 The Executive Secretariat Process and Recent Adjustments 11 Capacity Building over the Longer Term 15 Initiatives to Improve and Institutionalize the Interagency Process 17 The Issue of Funding 21 Conclusion 26 References 26 Key Capabilities for Foreign Disaster Relief & Humanitarian Assistance 29 Accessing U.S. Military Capabilities and Skills 30 Will Capability Gaps Be a Problem? 32 DoD and Service Efforts to Ensure That HA/DR Capabilities Are Available 35 Is an Inventory of Key Capabilities Really Needed? 38 Review of High-Value/High-Leverage Assets 39 Airlift and Sealift Support 39 Supply Chain Management and Distribution Logistics 43 Engineering and Construction Support 47 Communications and Information Management 50 Medical Assistance and Health Diplomacy 53 Summary 58 Private Sector Contributions and Capabilities 59 Conclusion 66 References 67 Operational Challenges, Civil-Military Coordination, & 72 COCOM Platforms for HA/DR Collaboration Developing a Concept of Operations for Military Support 73 Ongoing Challenges to Civil-Military Coordination 81 COCOM Platforms and Programs to Promote Collaboration 87 U.S. Pacific Command 87 U.S. Southern Command 91 U.S. Africa Command 96 Conclusion 98 References 99 Finding the Right Mix THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S iii THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S Key Partnerships and Platforms for International Cooperation 102 UN Structures and Procedures 102 NATO Structures and Procedures 108 European Union Structures and Procedures 112 ASEAN Initiatives 115 Key Non-European Allied and Partner Country Capabilities 119 Australia 119 Singapore 122 The Republic of Korea ROK( ) 124 Japan 126 Canada 130 A Final Note on India and China 132 Conclusion 134 References 134 Summary Conclusions & Recommendations 141 Reference 147 Abbreviations, Acronyms, and Initialisms 148 About the Author & Contributors 152 Finding the Right Mix Key Partnerships and Platforms for iv International Cooperation THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S Illustrations State as the Lead Federal Agency 7 The Executive Secretariat Process 11 The DoD Coordination/Approval Process 13 Letter of Commitment Process 15 Major DoD Funding Lines for HA/DR Operations 24 GFM / JFP Allocation Process with JFCOM as Primary JFP 31 U.S. Contributions to Operation Unified Assistance 41 U.S. Contributions to Operation Lifeline 42 Global Snapshot of Seabee Deployment 48 Expansion of FFE/FEST Units for Stability Operations 49 USNS Comfort – Continuing Promise 2007 55 USNS Mercy – Pacific Partnership 2008 56 U.S. Private Sector Contributions to the Tsunami Response 59 GRT’s Data Management System 63 U.S. Corporate Donations to Earthquake Relief in China 65 HA/DR Operational Phases 73 Disaster Relief Life Cycle 75 Comparison between Humanitarian Operations Center (HOC), 77 Humanitarian Assistance Coordination Center (HACC), and Civil-Military Operations Center (CMOC) Notional Composition of a Civil-Military Operations Center 78 Coordination at the Joint Task Force Level 79 Pacific Partnership – USS Peleliu (2007), USNS Mercy (2008) 91 Continuing Promise 2008 (April-November) 93 5 exercises in 5 countries: a snapshot of New Horizons in 2007 94 Office for the Coordination of Humanitarian Affairs 103 UN Response to Pakistan Earthquake – The Cluster Approach 107 Requests for Assistance to Nato-Eadrcc 109 NATO Contributions To Pakistan Relief 110 Requests for Assistance to EU Civil Protection Mechanism 114 ASEAN Standby Arrangements for Disaster Relief and Emergency Response 116 ASEAN Institutional Arrangements 117 Decision Process for Australia’s AUSASSIST Plan 119 Major ROK Disaster Relief and Reconstruction Assistance 125 Types of ROK Assistance for Disaster Relief and Reconstruction 126 Structure of Japan Platform 128 Chain of Command for Disaster Relief within Canadian Forces 131 Finding the Right Mix Key Partnerships and Platforms for v International Cooperation Finding the Right Mix vi THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S Acknowledgments Obviously, any study effort of this magnitude has and U.S. Africa Command, as well as on national di- benefitted from the support of numerous individu- saster relief programs in Singapore, the Republic of als and organizations both from the public and pri- Korea, Japan, and Canada. The efforts of all three vate sector. First and foremost, I want to thank the of these individuals were crucial to the completion Smith Richardson Foundation of Westport, Connect- of this project. icut, and especially Marin Strmecki, the Foundation’s At various points in the study, other IFPA colleagues Senior Vice President and Director of Programs, and – especially Robert Pfaltzgraff, Jacquelyn Davis, and Allan Song, a Senior Program Officer for Interna- James Schoff – provided important additional tional Security and Foreign Policy at the Founda- insights, assistance, and guidance, all of which made tion. Without their initial encouragement and the the final report better than it otherwise would have Foundation’s generous financial support, this study been. Many thanks are also due to Nicholas Perry would never have been possible. for his excellent research support on a range of As for the research team at the Institute for For- project tasks and issues, Anika Binnendijk for her eign Policy Analysis (IFPA), special thanks are due in-depth research on the 2005 Pakistan earthquake, to Marina Travayiakis, who worked closely with me Adelaide Ketchum for her outstanding contributions throughout all phases of the study. Marina also con- in editing this report, and Christian Hoffman for his ducted extensive research on U.S., UN, NATO, and superior graphic design and layout work. EU disaster relief planning and civil-military coor- With respect to the field research and interviews dination, and prepared draft papers on these issues conducted as a key part of this study effort, a host of for integration into the final report. She helped as other individuals need to be thanked as well for pro- well to draft the section of the report that examines viding critical insights on key issues discussed in this Department of Defense (DoD) and military service report and/or for contributing in important ways to concepts of operations (CONOPS) for humanitarian workshop dialogues and brainstorming sessions or- assistance and disaster relief (HA/DR). In addition ganized in support of the study. From U.S. official and to Marina’s assistance, Bobby Andersen provided in- nongovernmental expert circles, this would include, dispensable drafts on private sector contributions in alphabetical order, Thomas Baltazar, Maureen to HA/DR operations, various aspects of civil-mili- Bannon, Lieutenant General Robert “Rusty” Black- tary relations, and trends with respect to disaster man, Colonel Gene Bonventre, Andrew Bruzewicz, relief planning now under way at the Association James Castle, Marc Cheek, W.I. “Ike” Clark, Kath- of Southeast Asian Nations (ASEAN) and in Aus- leen Connolly, General Bantz Craddock, Tom Dolan, tralia. Finally, Yaron Eisenberg prepared extreme- Robert Eldridge, Emily Goldman, Lieutenant Gen- ly helpful draft reports on HA/DR-related activities eral John Goodman, Lieutenant General W. C. “Chip” at U.S. Pacific Command, U.S. Southern Command, Gregson, Bailey Hand, Clifford Hart, Ambassador Finding the Right Mix THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S vii THE INST I TUTE FOR FORE I GN POL I CY AN A LYS I S John Herbst, Malcolm Johnson, Colonel Charlie King, Koichi, Maurits Jochem, Kanehara Nobukatsu, Ka- Captain Robert Kiser, Donald Kisicki, Stacie Konan, nazawa Hironori, Kim Changsu, Kim Jungsup, Lee Leonard Kotkiewicz, Rear Admiral Michael LeFever, Chung Min, Lee Yongsoo, Asta Mackeviciute, Moon Kate Legates, Nancy Lindberg, Peter Long, Bernd Chung-in, Zabeta Moutafis, Major General (Ret.) Pan “Bear” McConnell, Joseph McMenamin, Eric McVa- Zhenqiang, Park Chang Kwoun, Marc Preston, Seki don, Colonel David Mitchell, Captain Rick Morrison, Kaoruko, Suzuki Atsuo, Takamatsu Koji, Tokuchi Captain Donald Morton, Barry Pavel, Linda Poteat, Hideshi, Umemoto Kazuyoshi, Commander Darryl Ambassador Clark Randt, Jr., Susan Reinert, Admiral Watters, Lieutenant General Yamaguchi Noboru, Ya- Gary Roughead, Robert Salesses, Jon Smart, Edward mamoto Rika, Yoshuzaki Tomonori, and Zhuang Ji- Smith, Lieutenant General Glenn Spears, Captain anzhong. I am grateful to all of these individuals for Allan Stratman, Rob Thayer, Rabih Torbay, John Tri- the perspectives and knowledge that they offered gilio, Douglas Wallace, Scott Weidie, and Colonel over the course of this project. Christopher Wrenn. From potential partner coun- Charles M. Perry tries and major regional or international organiza- Cambridge, MA tions, I wish to thank, again in alphabetical order, January 2009 Ahn Kwang Chan, Choi Kang, Major General (Ret.) Gong Xianfu, Hoshino Toshiya, Major General Isobe Finding the Right Mix Key Partnerships and Platforms for viii International Cooperation C1HAPTER Introduction Over the past decade, the conduct of humanitari- pabilities to weather future disasters with less need an assistance and disaster relief (or HA/DR) opera- for external support. tions has become an increasingly prominent aspect As for the U.S military’s larger role in disaster relief of American diplomacy, and one in which U.S. mil- overseas, a number of additional factors come into itary forces are playing an ever more central role. play.
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