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).

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SUMMARY
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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.

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OBJECTIVES
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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.

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BACKGROUND
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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.

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DEADLINE and POINT OF CONTACT
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8. (U) Department requests posts report back host
government views by June 13.
RICE