SEEKING VIEWS ON AN ARF STATEMENT ON REGIONAL

UNCLAS STATE 061440 SIPDIS E.O. 12958: N/A TAGS: PREL ARF EAID ASEAN SUBJECT: SEEKING VIEWS ON AN ARF STATEMENT ON REGIONAL DISASTER PREPAREDNESS REF: STATE 59706 ¶1. (U) This is an ACTION REQUEST for Embassies BANDAR SERI BEGAWAN, BANGKOK, BEIJING, CANBERRA, HANOI, JAKARTA, KUALA LUMPUR, MANILA, NEW DELHI, OTTAWA, SEOUL, SINGAPORE, TOKYO, USEU BRUSSELS, WELLINGTON (see Para 3). -------------- SUMMARY -------------- ¶2. (U) Department requests that posts seek host government and ASEAN Secretariat views on the desirability of issuing an ASEAN Regional Forum (ARF) Ministerial Statement on Regional Disaster Preparedness at the July 24 ARF Ministeri al Meeting in Singapore. Drafted perhaps by an ASEAN country, the U.S. is consulting with key ARF countries whether there would be widespread support for a step forward given recent regional disasters in Burma and China. The statement would gain political support for further ARF civil-military coordination including multilateral exercises, the further development of an ARF Standby Arrangement System, the formation of an ARF SOFA Template for disaster repose and the formation an ARF Workplan for Regional Disaster Preparedness. The U.S. does not have specific text in mind at this stage. The Philippines will also be approached on their pending decision regarding their hosting of a spring 2009 ARF Disaster Relief Exercise co-chaired with the U.S. -------------- OBJECTIVES -------------- ¶3. (U) ACTION REQUEST: Department instructs Embassies to pursue the following objectives with appropriate host government officials: --Persuade host government that, in response to recent natural disasters in Asia, ARF and its members need to respond appropriately. In this case, ARF should consider how best to coordinate and prepare for future natural disasters. --Seek host government support for an ARF Ministerial Statement on Regional Disaster Preparedness. An ASEAN country should draft the text. --Inquire about host governments' initial reactions to the notional, key elements of the proposed statement: further civil-military coordination, a revived ARF Standby Arrangement System (SAS),an ARF SOFA Template and an ARF Workplan for Regional Disaster Preparedness. --(Jakarta discussions with ASEAN Secretariat only) Inform the ASEAN Secretariat that this proposal and possible, separate U.S. assistance to ASEAN is in response to Secretary-General Surin's May 30 note to PACOM and EAP. 
--(Manila only) Urge the Philippines to meet a mid-late June target to decide on their ability to co-host a 2009 ARF Disaster Relief Exercise. Gain support from the Philippines for using this proposed ARF statement to gain further ARF endorsement of the April-May 2009 exercise. -------------- BACKGROUND -------------- Paragraphs 4-7 only may be delivered as a non-paper to host governments (Note: Para 6 and 7 for ASEAN Secretariat and Manila only at post's discretion). ¶4. (U) The Utility of an ARF Response to Recent Events: When regional crises arise, ARF needs to consistently respond with appropriate solutions. Recent natural disasters in Burma and China again underscore the need to further prepare for and coordinate multilateral civil and military assistance to affected populations. The region has made progress since the devastating 2004 tsunami and the multilateral assistance that followed. However, further training, technical assistance, and coordination in advance of disasters remain a need. Originating from the mandates of the 2006 ARF Statement on Disaster Management and Emergency Response, ARF provides a key venue for this type of cooperation. The U.S. proposes to enhance ARF's efforts in disaster preparedness in the stages before a disaster strikes. This requires more effective coordination both among ARF members, with ASEAN, and with other regional and UN-system responders. ¶5. (U) Proposed Key Elements of an ARF Statement on Regional Disaster Preparedness. Possibly drafted by an ASEAN country, the 2006 ARF Agreement on Disaster Management and Emergency response would form the platform for a new statement: --Greater Civil-Military Coordination: Military assets and personnel have played an increasingly important role in Asian regional disaster responses. Although militaries are often one of the first responders, militaries consistently should remain in support of, and not replace civil responses. Asia-Pacific civil and military agencies can improve coordinated responses through training, information sharing, and multinational exercises using common plans. For example, ARF recently held a 2008 Desktop Exercise in Jakarta. Australia is developing a disaster guide for strategic planners (recently re-titled as ARF Strategic Guidance for Humanitarian Assistance and Disaster Relief). The U.S. seeks to reinforce support for ARF's role in civil-military disaster response. Approved last year in Manila, this includes a 2009 ARF Disaster Relief Exercise, possibly in the Philippines. --A COMBINED ARF and ASEAN STANDBY ARRANGEMENT SYSTEM: In a 2006 ARF Statement on Disaster Management, Foreign Ministers approved the development of an ARF Standby Arrangement System (SAS). However, ARF has not developed the concept further. A SAS would serve as a register of ARF members' disaster relief civil and military assets that could be requested by an affected ARF member. The provision of SAS assets is voluntary. Members would update the SAS as appropriate and closely coordinate with relevant UN organizations. This effort needs to be revived, complement ASEAN's own efforts, and align more closely with the UN and NGO disaster relief system. Additionally, ARF members would develop a workplan and offer training opportunities, as available, to further develop the use of SAS assets and personnel. The ARF Statement on Regional Disaster Preparedness would strongly support the further development of an ARF SAS over the next ARF inter-sessional year. ARF and ASEAN should also consider how they can fur ther complement, or even combine such arrangements. --ARF SOFA TEMPLATE: In addition, the development of an ARF Status of Forces Arrangements (SOFA) template could be used by assisting and receiving governments as needed. Some regional military agencies recently discussed the need for a pre-written template that could be utilized by militaries in the event of disasters. A template could save valuable time in moments of extreme need. The ARF SOFA Template would not serve as a multilateral agreement or treaty among ARF militaries to operate on one another's soil. Based on bilateral decisions between assisting and receiving countries, assisting militaries and receiving countries would also not require the use of SOFAs. Rather, the template would form the basis for temporary, bilateral arrangements between receiving countries and assisting militaries. --ARF WORKPLAN FOR REGIONAL DISASTER PREPAREDNESS: Similar to the ongoing proposal by the U.S. for an ARF Workplan on Counter Terrorism and Transnational Crime, which will be considered by Ministers in Singapore, ARF should create a separate workplan to help coordinate certain ARF-wide or sub-regional training for disaster preparedness. The workplan would encompass only ARF activities and sub-regional activities for which members seek ARF assistance. Furthermore, a workplan would more effectively coordinate ARF's interactions other regional and international efforts. The proposed ARF Statement would endorse the creation of a workplan. The framework for the workplan would be developed next ARF inter-sessional year, following the Ministerial. ¶6. (U) (ASEAN Secretariat Only) ASEAN Secretary-General Surin Pitsuwan sent a May 30 email to PACOM Lt. General John Goodman (Commander, Joint Task Force Caring Response for Nargis),CDRPACOM Adm. Keating, and U.S. Ambassador for ASEAN Affairs Scot Marciel, expressing the need for greater ASEAN disaster preparedness and a role for ARF (sent septel). The U.S. welcomes SYG Surin's views and tactical guidance. The proposed ARF Statement on Regional Disaster Preparedness and possible, additional U.S. assistance to ASEAN could significantly advance existing efforts within both ARF and under the U.S.-ASEAN Enhanced Partnership. ¶7. (U) (Manila only) The Philippines urgently needs to resolve whether it can allow non-U.S. military forces to participate in the proposed April-May 2009 ARF Disaster Relief Exercise. In light of ARF's approval process and the pressing need to coordinate with other participating ARF militaries and governments, a mid-late June target for a final decision is needed. After mid-late June, the U.S. and the Philippines should discuss options for a way forward, including considering an alternate host. The U.S. understands the government's political and legal concerns about hosting military personnel without a SOFA. As recent events in Burma and elsewhere have shown, these are the difficult decisions that must be made, on a much quicker timeline, in the event of a real disaster in the Philippines. This exercise could serve as an example of strong Philippine leadership within the region, ASEAN, and ARF. The U.S. stands ready to assist the Philippines in this exercise bilaterally and with other participating cou ntries. If the Philippines is ready to move forward with multilateral military participation in the exercise, the U.S. would like to insert language into the proposed statement to have ARF Ministers further endorse the exercise. At the August 2, 2007 ARF Ministerial meeting, Ministers endorsed the general idea of a 2009 ARF Disaster Relief Exercise in the Philippines. ARF approval of stronger language is still needed. The U.S. is open to suggestions from the Philippines on stronger language that the Philippines feels most comfortable with. -------------- DEADLINE and POINT OF CONTACT -------------- ¶8. (U) Department requests posts report back host government views by June 13. RICE