JAPAN ASKS FOR PATIENCE ON RECAAP

C O N F I D E N T I A L TOKYO 004889

SIPDIS

SIPDIS

DEPARTMENT PLEASE PASS TO EAP, EB/TRA/OTP, OES/OA AND L/OES

E.O. 12958: DECL: 08/25/2016
TAGS: EWWT KCRM KTIA PBTS PHSA PREL JA
SUBJECT: JAPAN ASKS FOR PATIENCE ON RECAAP

REF: A. STATE 135670


B. TOKYO 04738

Classified By: Political Section Deputy Carol T. Reynolds. Reasons 1.4
(b/d).


1. (C) Summary. Japan is concerned that early accession by
the United States to the Regional Cooperation Agreement on
Combating Piracy and Armed Robbery Against Ships in Asia
(ReCAAP) could dissuade other countries in the region from
participating, MOFA Ocean Division Principal Deputy Director
Okano told Embassy officers August 23. ReCAAP will be most
effective if the 16 countries that adopted the Agreement in
2004 actively participate. It is most important for the
littoral states in the Malacca Straits (Singapore, Indonesia
and Malaysia) to conclude the ratification process. When
asked if Japan's position would change if both Indonesia and
Malaysia acceded to the Agreement, Okano repeated that Japan
would still prefer if all member states became party to
ReCAAP before opening the Agreement to "newcomers." ReCAAP
is not a closed agreement, but it requires regional
cooperation, Okano stressed, asking for U.S. cooperation and
understanding. End Summary.

U.S. Application Might Dissuade Other Member States
-------------- --------------


2. (C) Embassy Tokyo Political Officer and Assistant Naval
Attache delivered reftel A demarche to Ministry of Foreign
Affairs Ocean Division Principal Deputy Director Yukiko Okano
and Oceans Division Officer Hiroshi Ezaki on August 23, 2006.
Okano expressed appreciation for U.S. interest in acceding
to the Regional Cooperation Agreement on Combating Piracy and
Armed Robbery Against Ships in Asia (ReCAAP). Japan
recognizes the United States as a large user state and
contributor to Asia's maritime security. Although Japan
would like to work with the United States to build capacity
and tackle other security issues in the region, it shares
Singapore's concern that early accession by the United States
to ReCAAP could dissuade other countries in the region from
participating.

Malaysia and Indonesia Participation Essential
-------------- -


3. (C) ReCAAP will be most effective, Okano continued, if
the 16 countries that adopted the Agreement in November 2004
actively participate. It is most important for the littoral
states in the Malacca Straits (Singapore, Indonesia and
Malaysia) to conclude the ratification process. To date,
only Singapore is party to the agreement, but Malaysia and
Indonesia are also indispensable, Okano emphasized. Japan
has been and will continue to encourage these two countries
to accede to ReCAAP. It is well known that both Malaysia and
Indonesia hold that only the littoral states should patrol
their own territorial waters; both countries have
reservations about the United States participating in
security issues related to the Malacca Straits. All 16
ReCAAP member states are aware of the littoral states'
sensitivity and would likely prefer that the original 16
ratify the Agreement before opening it to "newcomers." Okano
shared her opinion that Malaysia and Indonesia would be even
more hesitant to participate in ReCAAP if the United States
showed a strong interest in joining.

4. (C) Japan plans to do its utmost to encourage both
Malaysia and Indonesia to join the Agreement and hopes the
United States will cooperate by delaying its application.
Japan has received no sign from either country that it is
ready to accede to the Agreement, Okano admitted, but Japan
is trying to schedule expert-level bilateral meetings with
both countries to feel them out. Japan cannot try to push
both countries at the same time, and plans to focus first on
Indonesia and turn to Malaysia later. In June 2006 Japan
provided Indonesia grant aid for counterterrorism and patrol
boats. Japan hopes that these incentives will encourage
Indonesia to reconsider its position on ReCAAP.


5. (C) When asked if Japan's position would change if both
Indonesia and Malaysia acceded to the Agreement, Okano said
Japan would welcome U.S. participation as soon as ReCAAP was
"well-functioning." To do that, however, Okano repeated that
participation from all the member states would be important.
China has not yet acceded to ReCAAP and that could be
problematic, but convincing China at this point is not
Japan's top priority. Okano was confident that the other two
member states, Bangladesh and Brunei, would join as soon as
Malaysia, Indonesia and China accede. ReCAAP is not a closed
agreement, Okano stated, and it should be open to all
interested parties. It does require regional cooperation,
however, and she again asked for U.S. cooperation and
understanding.

ISC Not Yet Functional
--------------


6. (C) The Information Sharing Center (ISC),which is
located in Singapore, will hold an official-level meeting in
early October and a General Council meeting at the end of
November. Japan has not yet decided its level of
participation, but could send someone at the Deputy Director
General Level to the November meeting, Okano shared. Japan
needs more time to make ReCAAP functional. The ISC is not
well equipped and requires additional personnel and software.
It may take another year to make the ISC operational, Okano
predicted.

Japan's Position Coordinated, Australia to Get Same Message
-------------- --------------


7. (C) Okano assured us that the position she presented is a
coordinated one. The Foreign Ministry and Japan Coast Guard
(JCG) share responsibility for ReCAAP and they are in daily
phone contact. The Foreign Ministry plans to provide
financial contributions to the ISC and the JCG is prepared to
send one person to help staff the ISC. Okano inquired if we
had heard from Australia whether it was planning to apply to
join ReCAAP. When the Agreement was first finalized in 2004,
Australia had approached Japan about participating. Okano
noted that, if Australia were still interested in joining,
she would have to send the same message to them and request
that they delay their application.
DONOVAN