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06TOKYO1919 2006-04-10 06:21:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Tokyo
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DE RUEHKO #1919/01 1000621
R 100621Z APR 06
					  UNCLAS SECTION 01 OF 08 TOKYO 001919 


DHS For office of THE secretary/ADAM ISLES
doe for nnsa


E.O. 12958: N/A


1. (SBU) Summary. Homeland Security Secretary Michael
Chertoff visited Tokyo March 26-28 (as part of a wider trip
to Asia) for meetings with Chief Cabinet Secretary Abe,
Foreign Affairs Minister Aso, Justice Minister Sugiura,
Finance Minister Tanigaki, Public Safety and Security
Minister Kutsukake, and Land Infrastructure and
Transportation Minister Kitagawa. The purpose of the
Secretary's visit was to raise the level of concern over

terrorism with senior Japanese leadership and to seek
support for a stronger, more robust cargo inspection system
that would include installation of radiation detection
systems in Japan at Container Security Initiative and
Megaports locations. Secretary Chertoff stressed the need
to be very closely aligned with Japan to ensure that the
steps taken are appropriately balanced to promote a secure
travel and trade environment, but not at the expense of the
ability to travel and conduct international commerce. The
Secretary raised the visibility of the Department of

Homeland Security (DHS) and DHS' hefty portfolio of border
control, transportation and maritime security, law
enforcement, and disaster management. Secretary Chertoff
urged building on current successes with Japan such as the
Container Security Initiative, air marshal missions, the
port security program, and the Customs-Trade Partnership
Against Terrorism to make progress on Megaports and the
Immigration Advisory Program. Secretary Chertoff also met
with members of the American Chamber of Commerce in Japan
and with the Safety and Security Commission, an advisory
panel to the Japanese government on homeland security and
critical infrastructure protection issues.

Meeting with Finance Minister Tanigaki


2. (SBU) Secretary Chertoff began his meeting with Finance
Minister Tanigaki by stressing the historically strong and
cooperative working relationship the Department of Homeland
Security has with MOF's Customs and Tariff Bureau. The
Secretary specifically noted MOF's meaningful cooperation

and leadership on the Container Security Initiative (CSI)
since initiation of CSI two years ago and pointed out that
nearly 900,000 shipments have moved without incident between
Japan and the U.S. under the CSI program. Minister Tanigaki
referred to the presence of Japanese Customs officials in
the U.S. under the reciprocal terms of the CSI program and
expressed his belief that the deterrent effect of CSI is
working properly and he wants to continue that cooperation.

3. (SBU) Secretary Chertoff stated his desire to pursue
the Megaports Initiative with Japan as a complement to the
CSI program and requested MOF's cooperation to implement
Megaports in Japan. The Secretary stated Megaports was
operational in Rotterdam, Greece, and other locations and
explained how Megaports would help in the fight against the
spread of radiological material that could be used to
fashion weapons. In response, Minister Tanigaki agreed on
the need to step up anti-terrorism measures in Japan.
Referring to his past experience as Chairman of Japan's
Atomic Energy Commission, the Minister stated he understood
the importance of non-proliferation. Minister Tanigaki
stated MOF is currently consulting with not only the USG but
with several Japanese government agencies on whether to
implement the Megaports Initiative and that he hoped for
good progress.

4. (SBU) Minister Tanigaki expressed Japan Customs and
Tariff Bureau's desire for more anti-terrorism experience

TOKYO 00001919 002 OF 008

and requested initiation of a personnel exchange program
under which Japan Customs officers would be assigned to
Customs and Border Protection's National Targeting Center
for tours of duty to learn terrorist targeting techniques.
Secretary Chertoff responded that he would be delighted to

host the Japan Customs officers and indicated that having
shared values would assist both Customs administrations in
regional capacity building efforts.

5. (SBU) Secretary Chertoff described the huge challenge
of merging 22 separate agencies into the Department of
Homeland Security, and that every year the U.S. is
increasing its security as a result of those changes. The
Secretary reiterated that it was not his desire to interfere

with trade and that with more intelligent and technological
approaches, trade could be secured without strangling it.
The Secretary concluded the meeting by expressing that he
regarded Japan as a wonderful ally, and that a collaborative
approach to anti-terrorism will help both countries build a
secure and free trading system. Minister Tanigaki agreed
and expressed his desire to continue MOF's solid
relationship with DHS.

Meeting with Foreign Minister Aso


6. (SBU) Secretary Chertoff began the meeting by
expressing his appreciation for the efforts of Japanese
Ambassador Kato in Washington to establish a security
dialogue with DHS. Minister Aso praised the efforts of
Ambassador Schieffer in fostering the wonderful relationship
between Japan and U.S. Secretary Chertoff thanked Minister
Aso for Japanese government assistance provided in the
aftermath of Hurricane Katrina, and described Katrina as the
most devastating storm to hit the U.S. in the last 100
years. The Secretary went on to thank Minister Aso for his
support of DHS anti-terrorism programs including: a)
granting diplomatic status to DHS personnel assigned to
Japan as part of the Container Security Initiative, b) for
concluding an exchange of diplomatic notes formally
authorizing armed air marshal missions between Japan and the
U.S. by both Federal Air Marshals and Japan Sky Marshals, c)
for support of joint U.S. and Japan air marshal training at
the Federal Air Marshal Training Center, and d) for
continuing to support DHS' efforts to bring the Immigration
Advisory Program (IAP) to Narita Airport.

7. (U) Background Note on IAP: The IAP is a part of an
overall layered strategy designed to prevent terrorists from
boarding commercial air flights to the U.S. Other layers
include visa reviews conducted by Consular Sections,
electronic submission of advanced passenger manifest
information (API), access to airline passenger name records
(PNR), and border inspection on arrival at a port of entry.
Under the proposed IAP for Narita Airport, a team of Customs
and Border Protection officers would assist airlines to make
boarding decisions by identifying possible terrorists,
determining authenticity of travel documents, and assessing
a passenger's admissibility to the U.S. before that
passenger boards a plane destined for the U.S. While the
CSI program identifies risk to maritime shipping before a
container is loaded aboard a U.S.-bound ship, the IAP
identifies risk to air transportation before a passenger
boards a U.S.-bound aircraft. IAP would improve immigration
enforcement, enhance security of air travel, and reduce the
monetary penalties assessed against air carriers for landing
inadmissible passengers.

8. (SBU) DHS has an agreement in principle with MOFA to

TOKYO 00001919 003 OF 008

initiate the IAP as a 180-day pilot program, and there are
ongoing negotiations over the language of diplomatic notes
that would authorize the pilot. The IAP has broad support
from the air carriers because it saves the cost of penalties
for landing inadmissible aliens and the lost revenue in
having to return those aliens to the ports of departure.

9. (SBU) In a clearly cheerful mood, Minister Aso showed a
sample of Japan's new biometric passport to Secretary
Chertoff with a playful reference to the Secretary being
"the most dangerous man". This appeared to be a reference
to France and Italy's loss of visa waiver status for failing
to meet the October 26, 2005, requirement for integrating a
digital facial image into the data page of their passports.
Although he had an interpreter present, Minister Aso
conducted the meeting in English.

10. (SBU) Minister Aso continued the discussion on visas
by stressing the Japanese business community would like the
U.S. to resume renewal of various visa categories in the
U.S. (domestic visa revalidation). Minister Aso explained
the U.S. no longer renews H (worker) and L (manager) visas
in the U.S. which has generated complaints from the Japanese
business community about the inconvenience of having to
travel outside the U.S. to obtain new visas. Secretary
Chertoff stated he would look for a way to revalidate the
visas and work with Secretary of State Rice to make progress
on this issue.

11. (SBU) Secretary Chertoff briefed the Minister on a
program he intends to roll out shortly called "Secure
Freight". The purpose of this program, the Secretary
explained, is to learn more information earlier about the
contents of shipping containers, and that by knowing more
about a container, it will not only be more secure but move
faster. The Secretary stated that part of this system would
involve the use of radiation portal monitors to screen
containers for radiological material and expressed his
desire to work together with Japan to initiate the Megaports
Initiative. Minister Aso expressed industry's concern
(specifically mentioning Toyota) over delays that such a
system might cause in deliveries. Secretary Chertoff
responded that new technologies would minimize any possible
delays and that collecting information at the point of
export will increase security and speed up the delivery
process. After referring to the increase in exports to the
U.S. from throughout Asia, the Secretary pointed out that
cargo arriving in the U.S. from foreign ports with the best
security would move faster and would offer a competitive
advantage over cargo originating from less secure ports.
The Secretary noted the advantage we have over the
terrorists is technology and that we have to make better use
of sophisticated detection technologies.

12. (SBU) After briefly mentioning the North Korean
abduction issue, Minister Aso turned his attention to the
growing problem of illegal migrants in Japan, particularly
the influx of Chinese. The Minister stated 3 new jails were
recently constructed to hold illegal migrants and that
20,000 new police officers had been hired over the last 5
years to address this issue. Secretary Chertoff stated all
civilized countries face the same set of issues and that
raising security in one country will raise security for all.
The Secretary stated he is tackling this issue in the U.S.
through a combination of information and technology and
praised Japan's decision to move forward with legislation
authorizing the collection of biometric information from
arriving passengers (Japan's version of the US-VISIT
program) and mandatory submission of advanced passenger

TOKYO 00001919 004 OF 008

manifest information (API). The Secretary explained that as
an additional layer of defense, he is considering a
requirement that all airlines servicing the U.S. provide
advanced passenger manifest information (API) 60 minutes
prior to departure of the aircraft. (The current U.S.
requirement is to provide the manifest information after
departure). The Secretary concluded by stating that if the
U.S. and Japan operate collaboratively, our two countries
can raise the global security standard.

Meeting with Minister of Justice Sugiura


13. (SBU) The Justice Minister began the meeting with a
robust explanation of Japan's anti-terrorism efforts. The
Minister explained how Japan has been targeted by Al Qaeda
and needs to be united with the U.S. in its efforts to
combat terrorism. Minister Sugiura passed out copies of
Japan's December 2004 action plan for anti-terrorism and
reviewed MOJ's accomplishments to implement the action plan.
The Minister pointed out that Japanese passports now contain
integrated circuit chips and that MOJ has submitted
legislation to the Diet that would authorize collection of
biometric information from arriving passengers and
deportation of terrorist suspects. Minister Sugiura stated
he was confident the legislation would pass during the
current Diet session. The Minister mentioned his visit to
Korea in January 2006 and that Korea had also stressed to
him the importance of international cooperation.

14. (SBU) Secretary Chertoff recognized Japan as a strong
friend of democracy and peace. The Secretary explained his
involvement in drafting the U.S. Patriot Act and the need
for a legal mechanism to remove terrorist suspects. The
Secretary urged the Minister to initiate a pilot program to

exchange databases of terrorist information to ensure
terrorists can't exploit gaps in our information systems and
to continue discussions on implementing the Immigration
Advisory Program at Narita Airport. Minister Sugiura stated
he agreed with the information exchanges and would consult
with the Ministry of Foreign Affairs on how to accomplish
such exchanges. The Minister explained that Japan
Immigration Bureau now has the legal authority to exchange
information with foreign immigration authorities, but
cautioned that harmonization of domestic privacy laws in
Japan may be a sticking point to broader information

15. (SBU) The Secretary and Minister agreed to have their
respective staffs work together on ensuring the
interoperability of biometric collection systems (US-VISIT
and JAPAN-VISIT) and furthering database and biometric
information exchanges. The Secretary then raised the issue
of increasing the legal authority in transit lounges at
Japan's international airports. The Minister acknowledged
that there had been an increase in incidents involving
passport swaps occurring in the transit areas. To address
this problem, the Minister stated Japan Immigration Bureau
had increased its patrols of the transit areas and that in
2004 had deported 272 people for transit lounge violations.
The Minister went on to state that although there had been
across the board cuts in government staffing, legislation
had been submitted to add 150 new positions to Japan
Immigration Bureau staffing and to assign 22 officers to
transit area enforcement. Minister Sugiura stated this
legislation would pass the Diet on March 27, 2006.

16. (SBU) After mentioning some of DHS' concerns with
illegal migrants from China, Minister Sugiura stated illegal

TOKYO 00001919 005 OF 008

migrants from China were a "headache" for Japan. He
referred to statistics which showed illegal migrants commit
crimes and spoke of the need to confer with Chinese
officials about deporting Chinese prisoners in Japan. The
Secretary concluded by expressing that Japan is a wonderful

friend to the U.S. and a valuable partner. Minister Sugiura
advised that things move slowly in Japan but he is confident
Japan is moving in the right direction now that goals have
been established. The Minister ended by saying Prime
Minister Koizumi would step down when the current Diet
session ends.

Meeting with Public Safety Minister Tetsuo Kutsukake



17. (SBU) As Minister for Public Safety and Chairman of
the National Public Safety Commission, Minister Kutsukake's
portfolio includes disaster response and administrative
supervision over the National Police Agency. Secretary
Chertoff's meeting with Minister Kutsukake represented the
first cabinet level meeting with the Minister for Public
Safety. Prior to this meeting, National Police Agency (NPA)
officials lobbied DHS Senior Representative vigorously to
include NPA Commissioner-General Uruma as part of this
meeting. DHS Senior Representative agreed, but declined a
last minute suggestion from NPA to conduct the meeting
without Minister Kutsukake.

18. (SBU) After expressing his sympathies for Katrina
victims, Minister Kutsukake provided a brief explanation of
Japan's nuclear-biological-chemical (NBC) preparations (NPA
has established expert NBC teams within 8 prefectural police
departments and is cooperating more closely with the Self
Defense Force). Secretary Chertoff stated he too is
concerned about the possibility of NBC attacks and has
ordered the installation of radiation portal monitors at
U.S. ports to ensure no nuclear material will be smuggled
into the U.S. The Secretary pressed the Minister for
increased cooperation on terrorist and criminal threats and
urged cooperation with DHS law enforcement agencies
(Immigration and Customs Enforcement and Secret Service).

19. (SBU) Secretary Chertoff pointed to the successful air
marshal agreement with Japan (police officers serve as Japan
Sky Marshals) as an accomplishment to build upon. The
Secretary asked if there would be some ability to exchange

information on terrorists and members of Japanese organized
crime who may travel to the U.S. The Secretary stated that
knowing the identities of terrorist suspects and organized
crime members who had applied for passports would assist the
U.S. in refusing entry to such persons. The Secretary also
brought up the possibility of establishing a hotline for
immediate confirmation of criminal suspects as a means to
further cooperation. The Secretary offered to share any
information obtained from such individuals as part of the
inspectional process in the U.S. with the NPA. In response,
Minister Kutsukake said it would be difficult to decide here
but he would like to strengthen bilateral cooperation. The
Secretary offered to continue those discussions through the

DHS Senior Representative.

20. (SBU) The Secretary briefed the Minister on a
counterfeit U.S. currency investigation with possible links
to Japan that is being conducted by the U.S. Secret Service.

Meeting with Land Infrastructure and Transportation (MLIT)
Minister Kitagawa



TOKYO 00001919 006 OF 008

21. (SBU) Secretary Chertoff and Minister Kitagawa
initiated their discussion by committing to continue the
existing strong cooperation between the Coast Guards of
Japan and the U.S. and to further the benefits to port
security that result from that cooperation. The Secretary
then described how the Megaports Initiative would complement
port security and asked for Minister Kitagawa's support to
put Megaports in place. The Minister responded that MLIT
would cooperate. The Secretary added that it was his desire
to strike a balance between detection of dangerous material
and maintaining the smooth flow of commerce.

22. (SBU) Referring to the Ministerial Meeting on
Transportation Security that he hosted in Tokyo during
January 2006, Minister Kitagawa raised the issue of rail
security and the suggestion made during the Ministerial by
Transportation Secretary Mineta to create an international
framework for cooperation on rail security. Secretary
Chertoff expressed his regrets for not being able to attend
the Ministerial and stated how rail security presented a
much larger challenge than air security because of the
inability to screen rail passengers like air passengers.
The Secretary and Minister agreed that a closer relationship
and an exchange of information, technology, and techniques
would drive the international standard for all modes of
transportation security in the right direction.

Meeting with Chief Cabinet Secretary Abe


23. (SBU) The Secretary began with an explanation of the
creation of DHS and the portfolio he manages. After hearing
CCS Abe state his desire to maintain a balance between
security and the flow of trade, Secretary Chertoff remarked
that he shared that philosophy and described the challenge
as one of identifying those few shipping containers that may
pose a threat without disrupting trade. Secretary Chertoff
praised Japan as a wonderful ally and said that better
screening and information will add to our security. While
noting the cooperative working relationship DHS enjoys with
the Customs and Tariff Bureau on the CSI program, the
Secretary stated he would like to build on that relationship

to initiate Megaports. CCS Abe responded that Megaports, in
terms of counter terrorism, is a very important job to do
and expressed the hope that the related Ministries in Japan
and the U.S. will talk about introducing this initiative on
an official level. The Secretary reiterated the importance
he attaches to Megaports.

24. (SBU) CCS Abe asked the Secretary for his cooperation
to develop a procedure for domestic revalidation of business
visas to avoid the cost and time of leaving the U.S. to
obtain new working visas. Secretary Chertoff stated he
wants to make the U.S. welcoming for business and would
discuss a renewal procedure for business visas with
Secretary of State Rice.


25. (SBU) Secretary Chertoff stated the key to security is
striking the enemy where he is and not at home, and that the
border should be the last line of defense (not the first).
CCS Abe said Japan is a small country, but has a long
coastline and defending it requires Japan to be alert. He
stated there was a need to contain the Islamic threats in
the region from Indonesia and the Philippines and drugs and
weapons activity from North Korea. CCS Abe acknowledged
Ambassador Schieffer's recent visit to a site where North
Korean agents abducted a Japanese citizen and spoke of the
need to enforce laws against North Korea and the importance
of sharing information on Muslim extremists.

TOKYO 00001919 007 OF 008

26. (SBU) Secretary Chertoff said he was very interested
in sharing information not only on terrorists but also on
organized crime, and that both countries benefited from
information exchange because it multiplied the value of
existing information. The Secretary stated he would be
going to China as part of his trip to urge the leadership to
accept the return of illegal Chinese migrants in the U.S.
CCS Abe remarked that Japan faces a similar concern and is
considering a treaty with China to return the approximately
1400 Chinese prisoners currently in Japanese jails. The
Secretary observed that Europe also has a problem with

Chinese migrants and that he intended to push firmly but
politely to force China to accept repatriation. The meeting
ended with the Secretary thanking Japan for its Katrina
assistance and both leaders acknowledging the need for
international cooperation in the event of an outbreak of
avian flu.

Meeting with American Chamber of Commerce in Japan (ACCJ)



27. (U) Secretary Chertoff repeated to ACCJ members what
he had stated during his official meetings -- that his goal
is to balance security concerns with ensuring the smooth
flow of goods and services. He solicited ideas from members
of the Transportation and Logistics Committee on ways
industry could work with DHS to enhance cargo security. The
Secretary referred specifically to the ongoing debate for

100 percent inspection of all cargo and asked for the
industry's input on an alternative to 100 percent
inspection. The Secretary acknowledged 100 percent
inspection is a simple concept that could gain unexpected
momentum much as the Dubai Ports issue did. On the
elimination of the Transit Without a Visa (TWOV) program,
the Secretary said some easing of the restriction that
transit passengers must have visas is a possibility, but
only once security measures such as API, total containment
of U.S. transit lounges, and biometric passports were in
place. Committee members representing the air carriers were
emphatic that Japan's large population of legal migrants and
workers from Latin America should be considered an ideal
population for TWOV. They also noted that Varig Airlines,
which had operated at Narita for 30 years, was forced to
exit the market because passengers are routing through
Europe rather than the U.S. The Secretary also noted that
Japan, unlike some countries, has done very well with its
preparations for a biometric passport, and suggested the API
Quick Query (real time transmission of passenger manifest
data) currently a pilot program in the EU, could be extended
to Japan in the future.

Meeting with Safety and Security Commission


28. (U) The Safety and Security Commission is an advisory
panel to the Japanese government on homeland security and
critical infrastructure protection issues. The members of
the commission include former vice ministers and business
executives. General Larry Welch, former U.S. Air Force
Chief of Staff and Chairman of the Homeland Security Science
and Technology Committee met with the commission during
February 2006. Ambassador Yanai, former Japanese
Ambassador to Washington and former Deputy Chief Cabinet
Secretary Ishihara were among the commission members who met

with Secretary Chertoff.

29. (U) In remarks to the commission, Secretary Chertoff
explained his trip was designed to encourage major Asian

TOKYO 00001919 008 OF 008

trading partners to agree on elevating the standard of cargo
and passenger screening worldwide and expanding the use of
radiation detection technology. The Secretary pointed to
agreements with China and Singapore on Megaports and looked
forward to making progress with Japan on this issue. The
Secretary stated that technology and information and

intelligence sharing are the advantages the civilized world
has over the terrorists.

30. (U) In responding to a question on Japan's attitude
toward terrorism, the Secretary answered that Japan should
be realistic without being alarmist about the threat of
terrorism because the goal of the terrorists is to destroy
the international economic system and Japan is a large part
of that system. The Secretary continued by saying the
international economic system is fueled by the movement of
goods and people, and although terrorists may strike,
governments shouldn't destroy what they are trying to

Progress on Megaports


31. (U) DHS is undertaking a series of initiatives
intended to secure global maritime trade lanes. Some of
these initiatives are CSI, the Customs-Trade Partnership
Against Terrorism (C-TPAT), Operation Safe Commerce and the
Maritime Asset Tag Tracking System (two technologies to
secure and monitor shipping containers as they move in the
supply chain), International Port Security Program, and the
Megaports radiation detection initiative, which is a
cooperative effort between DHS and the Department of Energy.
Each of these initiatives is intended to address different
aspects of the challenge of preventing terrorists from using
the global trading system to move arms, weapons of mass
destruction, and to carry out catastrophic attacks. Under
the Megaports Initiative, the USG would assist GOJ to add
radiation detection capabilities at seaports in Japan that
would permit Japanese officials to passively and non-
intrusively screen cargo for nuclear and other radiological

32. (SBU) Since October 2005, DHS and Department of Energy
officials have met twice with a working group (organized by
MOFA) of eleven Japanese stakeholder agencies to explain the
details of the Megaports Initiative. The working group
discussions suggest that Japan Customs would be the clear
lead agency because of Customs' presence at the ports and
the inspectional nature of the project. Japan Customs,
however, has been reluctant to take the lead role because of
legal considerations and concern that moving shipping
containers through radiation portal monitors may disrupt the
flow of container traffic and cause delays.