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Strengthening the Alliance HA/DR Cooperation in the Asia-Pacific

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Strengthening the Alliance HA/DR Cooperation in the Asia-Pacific Strengthening the Alliance HA/DR Cooperation in the Asia-Pacific Strengthening the Alliance HA/DR Cooperation in the Asia-Pacific By Jon Ehrenfeld and Dr. Charles Aanenson With contributions by Tsuneo “Nabe” Watanabe, Senior Fellow, The Tokyo Foundation and Lieutenant General Noboru Yamaguchi (Ret.), Professor, National Defense Academy peace winds AMERICA The Japan-U.S. Civil-Military Disaster Preparedness Initiative Published in the United States of America by Peace Winds America www.peacewindsamerica.org Copyright © 2013 by Peace Winds America All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without prior permission of the publisher. ISBN (print): 978-0-9893447-0-8 ISBN (electronic): 978-0-9893447-1-5 Peace Winds America makes no warranties or representations regarding the accuracy of any map in this volume. Depicted boundaries are meant as guidelines only. Front cover photo: A U.S. Navy MH-60S Knighthawk helicopter from USNS Niagara Falls delivers stores to the Royal Australian Navy amphibious transport ship HMAS Kanimbla, during tsunami relief operations off the coast of Indonesia, January 2005 (Commonwealth of Australia, Department of Defence). Back cover photos from left to right: Children in Indonesia give thumbs up to USAID/OFDA staff after a delivery of clean water following the 2004 earthquake and tsunami (U.S. Agency for International Development); A team from the 15 Brigade, Japan Ground Self-Defense Force, gathers for instruction on Kadena Air Base, Japan, before heading to Tohoku to provide relief (Photo by 18th Wing Public Affairs / Senior Airman Sara Csurilla, 16 March 2011); Japan civilian and military responders search tsunami wreckage in Sukuiso, Iwate Prefecture (U.S. Navy photo by Mass Communication Specialist 3rd Class Dylan McCord/Released). Design and publishing services by The National Bureau of Asian Research Printed in Canada The paper used in this publication meets the minimum requirement of the American National Standard for Information Sciences—Permanence of Paper for Printed Library Materials, ANSI Z39.48-1992. peace winds AMERICA Contents Preface . vii Lieutenant General W C. Gregson, USMC (Ret .) Acknowledgements . ix Executive Summary . xi 要旨 . xiii List of Acronyms . .. xv Chapter I Humanitarian Assistance/Disaster Relief and the Asia-Pacific. 1 Chapter II The Japan-U.S. Security Alliance and HA/DR . 21 Tsuneo “Nabe” Watanabe, Senior Fellow, The Tokyo Foundation Chapter III Case Studies: Recent Major Disasters . 41 2004 Indian Ocean Tsunami . 42 2008 Cyclone Nargis . .54 2008 Wenchuan Earthquake . 60 2009 Sumatra Earthquake . 63 2010 Haiti Earthquake . 66 2010 Pakistan Floods . 72 2011 Christchurch Earthquake . 76 Chapter IV The 2011 Great East Japan Earthquake and Tsunami. .81 Chapter V Preparedness in HA/DR. 113 Preparedness Recommendations . 134 Chapter VI The HA/DR Deployment Decision. 139 Deployment Recommendations . 149 Chapter VII Disaster Response. 151 Response Recommendations . 170 Chapter VIII Disaster Recovery . .173 Recovery Recommendations . 191 Chapter IX Toward Strengthening HA/DR and the Japan-U.S. Alliance ...195 Chapter X HA/ DR（人道支援・災害救助活動）および日米同盟強化にむけて . 211 Strengthening the Alliance • vii Preface The U.S. and Japan have long been friends aiding each other and serving neighbors in the Asia-Pacific. Japan peacekeeping missions and U.S. disaster relief efforts illustrate their commitment to the public good of the Asia-Pacific. Such efforts are needed now more than ever, as the threat of natural disasters in Asia grows ever more pronounced. These stalwart allies together can render a profound service. Over the past ten years there have been numerous instances of Japan-U.S. humanitarian assistance/disaster relief (HA/DR) teamwork: in Utapao and Aceh (the 2004 Indian Ocean Tsunami), in the 2009 Pakistan floods, and in 2010 Haiti earthquake. The Japan-U.S. partnership following the 11 March 2011 Great East Japan Earthquake and Tsunami was exceptional, anchored on the deep friendship and commitment to assist each other in times of need. The Japan Self-Defense Forces performed superbly on 3/11, demonstrating its ability to operate and persevere in a chaotic situation replicating the worst damage that any enemy could inflict. The rapid response of the U.S. “illustrated that a friend in need is a friend indeed” in the words of a senior Japanese official and colleague. Our two nations have reached a turning point. They have demonstrated their readiness to move forward as equals, cooperating not just on economics and traditional security, but also in the provision of this public good for the Asia-Pacific. Peace Winds America (PWA) recognizes the tremendous capabilities of Japan and the U.S., especially when they partner. Yet the HA/DR expertise that Japan and the U.S. have developed over the years needs continued refining. Policies, mandates, procedures, connections—all need to be strengthened. The awareness of this HA/DR capacity, as well as a concern for the most vulnerable Asia-Pacific nations, led PWA to establish the Japan-U.S. Civil-Military Disaster Preparedness Initiative. The two-year program focused on strengthening the capacities of Japan-U.S. HA/DR. PWA workshops, forums, and interviews included and empowered all stakeholders, including governments, militaries, NGOs, businesses, and multilaterals. The program was designed to improve the communications, connectivity, and collaboration among the Japan and U.S HA/DR providers and at large in the region. Partnering in times of natural disasters has tested the Japan-U.S. relationship. Both have passed the test. Still much work remains to improve our disaster response and humanitarian assistance cooperation at all levels. The role of civilian government agencies must be expanded, codified, and practiced. Our militaries must learn to work collaboratively with non-governmental organizations, the viii • Strengthening the Alliance private sector and regional multilaterals, particularly the Association of South East Asian Nations (ASEAN), now emerging as an HA/DR asset. Peace Winds America has stepped forward to advance this critical task. Its Civil-Military Initiative is an excellent start. The policy and procedural recommendations for Japan and the U.S. must be addressed with participation of government officials. The work of “whole of society” Japan-U.S. cooperation must continue and expand. Making the most of this opportunity will strengthen the Japan-U.S. alliance and permeate into other areas of cooperation. This is a natural regional and global mission and role for the strong Japan-U.S. partnership. The benefits – a stronger alliance and a region more prepared for natural disasters – are worth the effort. Lieutenant General W. C. Gregson, USMC (Ret.) Nokesville, VA April 2013 Strengthening the Alliance • ix Acknowledgements Numerous people and organizations have ensured the success of the Japan-U.S. Civil-Military Disaster Preparedness Initiative and this Report. Thanks to our superb supporters we have been able to review and research numerous case studies and key HA/DR stakeholders, to conduct workshops, forums, meetings, and interviews, and to publish this Report, Strengthening the Alliance—HA/DR Cooperation in the Asia-Pacific. TheJapan Foundation Center for Global Partnership has been most generous in its support, and we wish to particularly thank Carolyn Fleischer, Lisa Wong, and Takashi Imai for their guidance. We are grateful to The Smith Richardson Foundation for its generous support and the counsel of Allan Song. We also appreciate the financial support of Hitachi, Akira/Itochu, Raytheon, and Boeing Japan, as well as their participation in the numerous events and discussions. Several institutions helped ensure the success of the Initiative through contribution of facilities, logistics, staff, and invaluable expertise. The U.S. Embassy/ Tokyo (Ambassador John Roos, Richard Bakewell, Paul Lewis, Rob Luke, Tyrone Fernandez, Joe Young); the Center for Strategic and International Studies (Dr. Mike Green, Eri Hirano), The Tokyo Foundation (Tsuneo Watanabe, Takaaki Asano); The Nippon Foundation; and, Peace Winds Japan (Kensuke Onishi, Rika Yamamoto, Tetsuto Binnaka, Maki Tateishi, and many hard-working volunteers). The PWA Board of Directors must be acknowledged for its counsel and active participation throughout the two years of the Initiative: from conception through the delivery of the Report, and even follow-up. We wish to make special mention of Japan National Diet Representative Akihisa Nagashima, General Noboru Yamaguchi, Kensuke Onishi, General Chip Gregson, Admiral Walt Doran, Dr. Mike Green, Kevin Ichikawa, and Tom Dolan. The Report was strengthened by the excellent writing of Tsuneo Watanabe (The Tokyo Foundation) and General Noboru Yamaguchi (National Defense Academy). PWA wishes to recognize the contributions of James Schoff (Carnegie Endowment for International Peace), Stacey White (Independent), and Richard Gibson, plus the thorough work of our publishers at the National Bureau of Asian Research, Jessica Keough and Jonathan Walton. More than 200 participants participated in the workshops and forums, interviews, and follow-up meetings. Without them, the Civil-Military Initiative would not have been possible. They have been the decision makers and “boots on the ground” in disasters in the Asia-Pacific, providing best practices, lessons learned, and
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