INTRODUCTION | i JAPAN’S NATIONAL SECURITY POLICY INFRASTRUCTURE CAN TOKYO MEET WASHINGTON’S EXPECTATION? Yuki Tatsumi November 2008 ii | JAPAN’S NATIONAL SECURITY POLICY INFRASTRUCTURE Copyright ©2008 The Henry L. Stimson Center ISBN: 0-9770023-9-X Photos by the Ministry of Defense in Japan and the Japan Ground Self-Defense Force Cover design by Rock Creek Creative. All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means without prior written consent from The Henry L. Stimson Center. The Henry L. Stimson Center 1111 19th Street, NW 12th Floor Washington, DC 20036 phone: 202-223-5956 fax: 202-238-9604 www.stimson.org YUKI TATSUMI | iii TABLE OF CONTENTS Acronyms............................................................................................................ iv Preface ................................................................................................................ vi Acknowledgements............................................................................................ vii INTRODUCTION.................................................................................................... 1 CHAPTER 1: EVOLUTION OF JAPANESE NATIONAL SECURITY POLICY .............. 11 CHAPTER 2: CIVILIAN INSTITUTIONS ................................................................ 33 CHAPTER 3: UNIFORM INSTITUTIONS................................................................ 65 CHAPTER 4: THE INTELLIGENCE COMMUNITY.................................................. 97 CHAPTER 5: LEGAL FRAMEWORK................................................................... 121 CHAPTER 6: ASSESSMENT............................................................................... 147 CHAPTER 7: EVOLVING US EXPECTATIONS OF JAPAN .................................... 165 CONCLUSION ................................................................................................... 185 About the Author……………………………………………………………...192 Endnotes………………………………………………………………………193 iv | JAPAN’S NATIONAL SECURITY POLICY INFRASTRUCTURE ACRONYMS (J)ASDF (Japan) Air Self-Defense Force (J)GSDF (Japan) Ground Self-Defense Force (J)MSDF (Japan) Maritime Self-Defense Force (J)SDF (Japan) Self-Defense Force ACSA Acquisition and Cross-Service Agreement AFB Air Force Base ASO Air Staff Office BMD Ballistic Missile Defense CENTCOM Central Command CIC Cabinet Intelligence Council CIRO Cabinet Intelligence and Research Office CRF Central Readiness Force CSICE Cabinet Satellite Intelligence Center DCI Director of Cabinet Intelligence DIH Defense Intelligence Headquarters DIO Defense Intelligence Officer DPJ Democratic Party of Japan DPRI Defense Posture Review Initiative GHQ General Headquarters GPR Global Posture Review GSO Ground Staff Office HUMINT Human intelligence IAEA International Atomic Energy Agency IGS Information-gathering satellite ISAF International Stabilization Force JCG Japan Coast Guard JDA Japan Defense Agency (now MOD) JIC Joint Intelligence Council JMA Japan Meteorological Agency LDP Liberal Democratic Party (Japan) MAP Military Assistance Program METI Ministry of Economy, Trade and Industry MITI Ministry of International Trade and Industry (Now METI) MLIT Ministry of Land, Infrastructure, Transport and Tourism MOD Ministry of Defense MOF Ministry of Finance MOFA Ministry of Foreign Affairs MSA Maritime Safety Agency MSO Maritime Staff Office MTDP Mid-Term Defense Program NATO North Atlantic Treaty Organization NDPG National Defense Program Guideline NDPO National Defense Program Outline NPA National Police Agency NPT Nuclear Non-Proliferation Treaty NSC National Security Council OEF Operation Enduring Freedom YUKI TATSUMI | v OIP Operation Iraq Freedom PCO Provincial Cooperation Office PLA People's Liberation Army (China) PLAAF PLA Air Force PLAN PLA Navy PLO Provincial Liaison Office PKO Peace-Keeping Operations PMO Prime Minister’s Office PPH Prefectural police headquarters PPSC Prefectural Public Safety Commission P-REX Police Team Rescue Units PRTs Provincial Reconstruction Teams PSI Proliferation Security Initiative PSIA Public Security Investigation Agency RPBs Regional Police Bureaus SAM Surface-to-air missile SCAP Supreme Commander of the Allied Powers SCC Security Consultative Committee SIGINT Signal intelligence SOFA Status of Forces Agreement TMD Theater Missile Defense TMD-WG Theater Missile Defense-Working Group TMPD Tokyo Metropolitan Police Department UN United Nations UNMIS UN Mission in Sudan WMD Weapons of Mass Destruction vi | JAPAN’S NATIONAL SECURITY POLICY INFRASTRUCTURE PREFAC E Dear Colleagues, It is with pleasure that I present Japan’s National Security Policy Infrastructure: Can Tokyo Meet Washington’s Expectation? by Yuki Tatsumi, Senior Associate at the Stimson Center. This is the latest volume in a series of works on Japan and its critical security alliance with the United States. In an era when we are focused on the rise of Asian powers and the realignment of geopolitical relationships in Asia, it is important to not lose sight of the central role that Japan, the most advanced economy in Asia, continues to play. From deployments in the Indian Ocean in support of coalition operations in Afghanistan and Iraq to an attempt to enhance the decision-making capability of the country’s leadership, Japan’s national security policies and practices have been trying to respond and adapt to new 21st century missions, after decades of self-imposed constraints on Japan’s external engagements. Ms. Tatsumi’s new book is a unique contribution to our understanding of Japan’s security policy community. It examines the core realities of how security policies are formulated and presented to decision-makers, and implemented once political choices are made. Ms. Tatsumi examines systematically all the key players in the Japanese system: the civilian agencies, the military services, the intelligence community, as well as the legal factors, including the prospects for constitutional reform. Her book concludes with important reflections on how the United States perceives these changes in Japan’s security community, and whether mutual expectations in this key alliance relationship are satisfied. The Stimson Center expresses special thanks to Allan Y. Song and the Smith Richardson Foundation for their support to this project. We hope that this volume will contribute to greater knowledge of Japan and its changing security community, in the interests of devising effective policies that promote peace in the vital East Asian region. Sincerely, Ellen Laipson President and CEO YUKI TATSUMI | vii ACKNOWLEDGMENTS First and foremost, my deepest gratitude goes to the Smith Richardson Foundation for their generous support for my work. In particular, I am thankful that Allan Y. Song, the Foundation’s senior program officer, had faith in me to support my project idea throughout the project period. I also would not have been able to complete this book without the professionally nurturing environment at the Henry L. Stimson Center. I thank Ellen Laipson and Cheryl Ramp for supporting me with my efforts at the Center to develop its Japan program; Jane Dorsey and Alison Yost deserve enormous credit for providing valuable assistance at the final stage of the project. I also owe Junko Kobayashi special acknowledgement for helping me write a proposal that launched this project. And I am extremely grateful for Alan D. Romberg, Distinguished Fellow and Director of the Center’s East Asia Program, for allowing me to pursue my own analytical interests. The Japan project interns— Aaron Young, Arthur Lord, Brian Clampitt, and Leslie Forgach—for spending endless hours proofreading my manuscript must be thanked for their efforts. In particular, Brian and Leslie have my respect for spending hours reading through my chapter drafts, helping to shape it into a publishable manuscript. I can never thank enough those in the government, militaries, and academia in both the United States and Japan whom I have had the privilege to call my mentors. Throughout the project, they shared their insights with me in a way that I could not have hoped otherwise. I am particularly grateful to Masahiro Akiyama, Rust M. Deming, Michael J. Green, Mike M. Mochizuki, Andrew L. Oros, James J. Przystup, Robin “Sak” Sakoda, Nicholas Szechenyi, and Akihiko Tanaka for providing constructive criticism to improve my work. Finally, my deep personal gratitude goes to Hideaki. As always, he was a master at keeping me in good spirit even through my thickest writer’s blocks. I can never thank him enough for his confidence in me and support for my work. Yuki Tatsumi Senior Associate, East Asia Program November 2008 YUKI TATSUMI | 8 YUKI TATSUMI | 1 — INTRODUCTION — hen I began to work on my first edited volume, Japan’s New Defense WEstablishment: Institutions, Capabilities and Implications, in January 2005, expectations had been rising among policymakers in the United States that Japan would be a more engaging actor in international security affairs. Japan, following the 9-11 terrorist attacks in 2001, had made several unprecedented decisions under then Prime Minister Junichiro Koizumi. First, Japan decided to dispatch Maritime Self-Defense Force (JMSDF) vessels for a refueling mission in support of Operation Enduring Freedom (OEF) in November 2001. Then, in March 2002, it dispatch Ground Self-Defense Force (JGSDF) troops to East Timor. Finally, in November 2003, Japan dispatched the Air Self-Defense Force (JASDF) to Kuwait to provide transport support