[Senate Prints 112-46]
[From the U.S. Government Publishing Office]
112th Congress } { S. Prt.
2d Session } COMMITTEE PRINT { 112-46
_______________________________________________________________________
THE NUNN-LUGAR CTR PROGRAM'S
ROLE IN THE ADMINISTRATION'S
ASIA-PACIFIC ``REBALANCING'' INITIATIVE
__________
A MINORITY STAFF REPORT
PREPARED FOR THE USE OF THE
COMMITTEE ON FOREIGN RELATIONS
UNITED STATES SENATE
One Hundred Twelfth Congress
Second Session
December 17, 2012
_____
U.S. GOVERNMENT PRINTING OFFICE
77-807 PDF WASHINGTON : 2012
-----------------------------------------------------------------------
For sale by the Superintendent of Documents, U.S. Government Printing
Office Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; DC
area (202) 512-1800 Fax: (202) 512-2104 Mail: Stop IDCC, Washington, DC
20402-0001
COMMITTEE ON FOREIGN RELATIONS
JOHN F. KERRY, Massachusetts, Chairman
BARBARA BOXER, California RICHARD G. LUGAR, Indiana
ROBERT MENENDEZ, New Jersey BOB CORKER, Tennessee
BENJAMIN L. CARDIN, Maryland JAMES E. RISCH, Idaho
ROBERT P. CASEY, Jr., Pennsylvania MARCO RUBIO, Florida
JIM WEBB, Virginia JAMES M. INHOFE, Oklahoma
JEANNE SHAHEEN, New Hampshire JIM DeMINT, South Carolina
CHRISTOPHER A. COONS, Delaware JOHNNY ISAKSON, Georgia
RICHARD J. DURBIN, Illinois JOHN BARRASSO, Wyoming
TOM UDALL, New Mexico MIKE LEE, Utah
William C. Danvers, Staff Director
Kenneth A. Myers, Jr., Republican Staff Director
(ii)
C O N T E N T S
----------
Page
Letter of Transmittal.......................................... v
Introduction................................................... 1
Findings....................................................... 1
Setting the Stage for Concern.................................. 1
Country Overview--Thailand..................................... 2
Nunn-Lugar CTR Cooperation in Thailand....................... 3
On the U.S. Side............................................. 4
Country Overview--Philippines.................................. 4
Nunn-Lugar CTR Cooperation in the Philippines................ 5
On the U.S. Side............................................. 5
Country Overview--Indonesia.................................... 5
Nunn-Lugar CTR Cooperation in Indonesia...................... 6
On the U.S. Side............................................. 6
The ``Pivot'' is . . . Intentionally Ambiguous................. 6
Recommendations................................................ 8
(iii)
LETTER OF TRANSMITTAL
----------
United States Senate,
Committee on Foreign Relations,
Washington, DC, December 17, 2012.
Dear Colleagues: During the October recess I led a
Congressional delegation to Southeast Asia where I met with
officials in Indonesia, the Philippines, and Thailand, to
encourage continued expansion in our bilateral relationships of
the Nunn-Lugar Cooperative Threat Reduction Program (CTR) as
part of the renewed strategic emphasis by the United States on
relations with the countries of the region.
In recent remarks at the Cooperative Threat Reduction
Symposium held at the National Defense University in early
December 2012, Deputy Secretary of Defense Ash Carter outlined
three points of evolution of the Nunn-Lugar CTR program, each
of which holds relevance and application to the U.S.
``rebalancing'' strategy toward Southeast Asia. Secretary
Carter stated:
The first [point of evolution] is the geographic
expansion of the Nunn-Lugar program. The disaggregation
and increasing sophistication of terrorist
organizations, coupled with leaps in technology that
reduce the barriers to WMD acquisition, has required
the U.S. and our partners to increase the global reach
of the program beyond the former Soviet Union to close
to 80 countries in all.
Second, the CTR program has increased its emphasis on
countering the threat of biological and chemical
weapons. Countering these threats was always part of
the Nunn-Lugar program, but scientific and
technological advancements have made these weapons more
dangerous and more widespread.
And the third is to keep the most dangerous pathogens
on Earth consolidated and secured in the minimum number
of well-guarded facilities.
Southeast Asia represents a major intersection of global
trade and commerce by water and air. The ten countries
comprising the Association of Southeast Nations (ASEAN)
represent the fourth largest export market for the United
States. By the same token, North Korea maintains an intricate
network of global trading companies which are active in this
Southeast Asian nexus of trade and commerce exchange. These
companies also serve as available vehicles for promoting North
Korean WMD proliferation activities.
A separate but related threat in the region is composed of
smugglers who engage in the more traditional illegal activities
but also are available to facilitate the movement of WMD and
associated materials. And then there are the cells or groups of
terrorist organizations operating in the region.
(v)
Congressional delegation meetings with U.S. embassy and
foreign officials in Southeast Asia also provided an
opportunity to discuss the Obama administration's ``pivot'' or
``rebalancing'' strategy toward the Asia-Pacific region, the
details of which remain sketchy in many respects. As the
administration keys on the means by which to implement its
rebalancing approach to Southeast Asia, it is important that
the Nunn-Lugar CTR program be singled out as a priority policy
tool. But while officials in Indonesia, the Philippines, and
Thailand expressed their commitment to the objectives of the
Nunn-Lugar CTR program, the level of coordination with its
projects is limited by the degree of interaction with CTR
officials permitted by U.S. embassies.
I trust that you will find the additional details in the
attached report of interest.
Sincerely,
Richard G. Lugar,
Ranking Member.
THE NUNN-LUGAR CTR PROGRAM'S
ROLE IN THE ADMINISTRATION'S
ASIA-PACIFIC ``REBALANCING'' INITIATIVE
Introduction
U.S. Senate Foreign Relations Committee Ranking Member Dick
Lugar travelled to Indonesia, the Philippines, and Thailand to
encourage continued global expansion of the Nunn-Lugar
Cooperative Threat Reduction (CTR) program.
In discussions with Southeast Asia officials, the Senator
stated that cooperation is essential to identify and to
interdict the possible flow of weapons of mass destruction
throughout the region. In meetings Lugar emphasized, ``Sources
of nuclear, chemical or biological weapons or precursor
materials could be states or rogue terrorist elements.
Southeast Asia is a major intersection of global trade and
commerce by water and air. U.S. strategic economic and foreign
policy needs to become more robust in the Asia-Pacific region
and Nunn-Lugar Global Cooperative Threat Reduction will be an
important tool for our diplomatic and military leaders as we
seek a more integrated approach to the region.''
Findings
Officials of Indonesia, the Philippines and Thailand agree
with the importance of the Nunn-Lugar CTR program.
Implementation of the Nunn-Lugar CTR program is at varying
levels within the three countries.
U.S. officials in Indonesia, the Philippines, and Thailand
are committed to the objectives of the Nunn-Lugar CTR
program. The level of coordination and implementation
varies within each U.S. Embassy.
Officials have concern about freedom of navigation of the
seas throughout the region.
Officials welcome plans by the Obama administration to
rebalance U.S. resources and assets, including military
and security, toward East Asia. However, a sense of uncertainty lingers over the reliability of the U.S. to
sustain the ``pivot.''
Officials throughout the three countries are uncertain as
to the full implications of the pivot or rebalance of
U.S. assets for their respective countries. While the
pivot is favorably viewed as a symbolic gesture,
questions remain in terms of details and
sustainability.
Setting the Stage for Concern
The ten countries comprising the Association of Southeast
Asian Nations (ASEAN)--Brunei, Burma-Myanmar, Cambodia,
Indonesia, Laos, Malaysia, Philippines, Singapore, Thailand,
and Vietnam--represent a population of 600 million. ASEAN is
the fourth largest export market for the United States. The
Straits of Malacca is a virtual super-highway of global ocean
commerce.
In addition to serving as an intersection of massive trade
and commerce exchange, ASEAN's neighbor to the north, North
Korea, maintains an intricate global and regional network of
trading companies. Although largely serving as an acquisition
mechanism for North Korea's military infrastructure, the North
Korean trading company web poses as a potential means of
proliferation. While considerable focus has been placed on
North Korea's nuclear program, the country also maintains a
chemical and biological infrastructure. In recent years, North
Korean officials attempted to access the biological research
program of at least one country within ASEAN.
A separate threat within Southeast Asia is found among
smugglers, such as those on the Malaysia-Thailand border who
emphasize profit, whether that be smuggling humans for labor or
sex, moving drugs, or any other ``commodity'' deemed to have
commercial value. The business maxim ``the greater the risk the
greater the financial reward,'' is not lost on Southeast Asia
smugglers, potential conveyors of WMD or related materials.
Not to be forgotten are the cells or groups of terrorist
organizations operating out of Indonesia, the Philippines,
Thailand, or elsewhere in the region.
In addition to the hub of Southeast Asia serving as a
potential nexus for the transport of WMD and related materials,
the interconnectivity of the region makes the spread of
infectious disease a major threat to the region. The detection,
diagnostics, and response to infectious diseases all have
significant similarities to a deliberate biological threat and
therefore fall within the scope of countering WMD.
Country Overview--Thailand
2013 will mark the 180th anniversary of Thailand-U.S.
relations. The enduring bilateral civilian and military
relationship has covered a plethora of topics and issues from
its inception. In writing to U.S. President Buchanan (or his
successor) in 1861, King Mongkut offered to send elephants to
the United States so that American citizens would be able to
use them as ``beasts of burden making them benefit to the
country.'' President Lincoln, occupier of the White House when
the King's letter was received, graciously declined the offer.
The contemporary Thailand-U.S. relationship is buttressed
by the 1833 Treaty of Amity and Commerce between Siam and the
United States (the latest iteration being the 1966 Treaty of
Amity and Economic Relations). Both countries are among the
signatories of the 1954 Manila Pact for the former Southeast
Asia Treaty Organization (SEATO). While SEATO was dissolved in
1977, the Manila Pact remains in force and along with the
Thanat-Rusk communique of 1962, constitutes the basis of U.S.
security commitments to Thailand. The United States designated
Thailand as a Major Non-Nato Ally in 2003.\1\
Thailand has been an essential partner of the United States
in times of peace and of war. However, with China's re-
emergence throughout Southeast Asia and on a global basis,
Thailand undergoes continual calibration of its relationship
with China and separately with the United States. As one Thai
official confided to Senator Lugar, Thailand is a small country
caught between two elephants. Translation--Thailand will
attempt to balance its relationships with China and the United
States in the future which over the long-term may result in a
diminishment of the strength of its military relationship with
the United States.
Presently, the bilateral relationship is robust on the
economic and security fronts. More than 700 U.S. companies will
have a combined investment of US $40 billion in Thailand by the
end of 2012 and 65 percent of those companies plan to expand
their investments in Thailand.\2\
The Thailand-U.S. military relationship has been active and
long-standing. Notably, Thailand sent troops to participate
with U.N. forces during the Korean War and has been an active
military partner of the United States since that time. Thailand
has received U.S. military equipment, essential supplies,
training, and assistance in the construction and improvement of
facilities and installation since 1950. Also, as a part of
their mutual defense cooperation, both countries have developed
a vigorous annual joint military exercise program which
averages 40 joint exercises per year and engages all the
military services of each nation.\3\
Senator Lugar's visit to Thailand included meetings with
Foreign Minister Surapong Tovichakchaikul, Defense Minister
Sukumpol Suwanatat, and senior representatives from the Thai
National Security Council (NSC).
He noted deep concern with all Thai officials over chemical
and biological threats, such as ensuring security for
laboratories and other areas that might store dangerous
pathogens. Thai officials took note of Senator Lugar's work
countering proliferation and WMD threats, and offered
Thailand's support for his global efforts. The Senator asked
Thai officials how the U.S. government could bolster Thai
capacity to counter security threats. Defense Minister Sukumpol
credited U.S. military training, such as through International
Military Education and Training (IMET), as well as defense
material through the Excess Defense Articles (EDA) program as
playing a major role in bolstering Thai capacity. NSC officials
requested continued U.S. assistance developing Thailand's
export controls, and countering narcotics and human
trafficking, as well as on financial crimes.
Nunn-Lugar CTR Cooperation in Thailand
Thailand is a key partner of the United States in efforts
to counter biological threats and avert chemical, biological,
radiological, and nuclear (CBRN) disasters. The Nunn Lugar
(CTR) Cooperative Bioengagement Program (CBEP) utilizes U.S.
government relationships with the Armed Forces Research
Institute of Medical Sciences (AFRIMS), the Centers for Disease
Control and Prevention, and the U.S. Department of Agriculture
to partner with Thailand on biosurveillance, biorisk
management, and infectious disease research.
The Consequence Management Assistance Program (CMAP)
supports the Thai government in improving military and first
responder CBRN disaster preparedness through training,
workshops, and consultation. Initial projects have included
high-level bilateral discussions and tabletop exercises with
Thai officials.
Thailand is a key international trade hub and is home to
one of the top 50 ports in the world in terms of container
traffic. Nunn Lugar CTR Programs and DTRA/SCC-WMD are prepared
to support future requests for assistance by the Thai
government. DTRA has observed, participated and administered
CBRN incident response exercises at Thailand port facilities
for a couple of years.
On the U.S. Side
U.S. Ambassador Chris Kenney pledged to ensure effective
coordination among U.S. government agencies so as to partner
with Thailand toward the effective implementation of the Nunn
Lugar CTR program.
Country Overview--Philippines
Because of his role as the head of a U.S. observer team
sent by President Ronald Reagan to monitor the 1986 election,
Senator Lugar maintains a special relationship with the
Filipino people and with President Benigno Aquino. The
Scarborough Reef incident between the Philippines and China was
very much on the minds of Filipino leaders during Senator
Lugar's visit.
The United States recognized the Philippines as an
independent state beginning in 1946. The two countries have
maintained an active and strong relationship from that time.
U.S.-Philippines relations are based on strong historical and
cultural links and a commitment to human rights and democracy.
The security ties are close between the two countries and the
Philippines has been designated as a Major Non-Nato Ally to the
U.S. The U.S.-Philippines Mutual Defense Treaty which is the
basis for the security relationship was reaffirmed in 2011 by
``The Manila Declaration.''
Strengthening our security alliance is one of our key
objectives with the Philippines. Emphasis is being placed on
reaching agreement on the increased rotational presence of U.S.
forces and opportunities for more joint exercises in the
Philippines while concurrently assisting with the build-up of
the Philippines' external defense.
In recent weeks, President Aquino announced agreement
between the government of the Philippines and the Moro Islamic
Liberation Front (MILF) to end a 40-year insurgency which has
killed as many as 200,000 people and discouraged investors from
the mineral-rich area in Mindanao. If the framework agreement
endures, military resources committed to Mindanao will be
available for other assignments.\4\ At the present time, the
improved security situation in Mindanao has allowed the
Philippine government to modify the Armed Forces of the
Philippines (AFP) from internal security of the country to
national defense. This is especially significant given the
crisis in the South China Sea where a confrontation commenced
in mid-April. Philippine ships sought to stop Chinese fishermen
from harvesting coral and protected marine species at the reef,
claimed by both the Philippines and China. Even though
Philippine ships withdrew from the area, Chinese ships have
maintained a continual presence creating an ongoing point of
irritation with the Philippines.
Philippine defense modernization efforts and attention to
external threats have increased the government's openness to
greater security engagement with the United States. The Aquino
administration sees the U.S.-Philippine alliance as providing a
defense against potential external threats. Maritime security,
domain awareness, and humanitarian assistance/disaster relief
are key areas of potential cooperation between the two
countries. There may be an increase in the level of U.S. forces
visiting the Philippines for training and exercises.
Nunn-Lugar CTR Cooperation in the Philippines
The Nunn-Lugar CTR program is partnering with the
Philippines to develop a maritime domain awareness
project in the country in 2013.
U.S. officials are also partnering with the Philippines to
develop their National Coast Watch System and Center.
The Nunn-Lugar CTR program is working with Philippines'
officials to increase biosafety, biosurveillance, and
health security capabilities in its public and
veterinary health sectors.
The Nunn-Lugar CTR program is developing a partnership with
the Philippines to provide consequence management
awareness seminars and workshops.
On the U.S. Side
From the U.S. perspective, Ambassador Harry Thomas oversees
active and integrated cooperation with the Philippines on the
Nunn-Lugar front.
Country Overview--Indonesia
The United States established relations with Indonesia in
1949. The U.S.-Indonesia Comprehensive Partnership of 2010 has
fostered consistent high level engagement on issues related to
strengthening education and security ties, improving
governance, improving trade and investment, cooperating on
health, partnering on international issues, and supporting
environment sustainability.
The military-to-military partnership is robust, and there
is cooperation on law enforcement and counter-terrorism
capacity building. The U.S.-Indonesia military relationship has
been impacted by past human rights abuses among the ranks of
security forces. While Indonesian officials are making progress
on the human rights area progress has been uneven toward
holding lower-ranking soldiers responsible.
The U.S. focuses engagement efforts with the Indonesian
military (TNI) in four distinct mutually agreed upon areas to
include: Professionalization/Reform/Modernization; Maritime
Security; Peacekeeping Operations; and Humanitarian Assistance/
Disaster Response.
Indonesia's location makes it pivotal to counter
transnational threats including terrorism, piracy,
proliferation, trafficking in persons, and infectious diseases.
U.S. officials were complimentary of bilateral cooperation
on the front of identifying and interdicting WMD and related
materials. In addition to the active interaction with the
Indonesian military, the U.S. stands ready to assist
appropriate Indonesian governmental departments and agencies
toward creating capability to address potential infectious
disease and other biological-related threats to the population.
The Nunn-Lugar (CTR) Cooperative Bioengagement Program (CBEP)
is among the U.S. Government programs available to support both
civilian and military ministries in improving biosecurity and
biosafety.
Nunn-Lugar CTR Cooperation in Indonesia
Like Thailand and the Philippines, Indonesia is an active
partner with the United States in efforts to enhance
the capability to prevent, deter, and interdict illicit
trafficking in WMD and related materials and
technology. Indonesia is adopting the Incident Command
System (ICS) method of response used by the U.S.
government.
On the U.S. Side
U.S. Ambassador Scot Marciel reaffirmed his commitment of
encouraging interagency cooperation toward the implementation
of Nunn-Lugar CTR goals and objectives so as to partner with
Indonesia to identify and to interdict WMD and related
materials.
The ``Pivot'' is . . . Intentionally Ambiguous
Officials of the three countries visited expressed
satisfaction and appreciation for the Obama administration's
announced ``pivot'' or rebalancing of assets toward Asia.
However, full details of the pivot application for each country
were unclear.
When the pivot was announced in the fall of 2011,
administration officials sought to connect with the Asian
mindset which places a premium on symbolism. The United States
announced it will be giving more attention to the region--a
gesture deeply appreciated by officials of many countries.
However, translating the meaning and application of the
pivot to any given country has proven to be a challenge, as
foreign officials have received few authoritative explanations.
One U.S. official in the region sought to articulate the
concept of the pivot--a reallocation of focus and resources
with greater emphasis on economic, security, and other
relations. However, none of the U.S. Embassies have received a
concise, detailed outline of the pivot's definition, cost, or
implementation specifics. Nor does it appear that the input of
U.S. officials in the region has been solicited in any active
or systematic way.
Commenting on Defense Secretary Panetta's mid-November trip
to Cambodia, Australia, and Thailand, a Department of Defense
(DOD) spokesman referred to the pivot (again), in general
terms:
``The United States is inextricably tied to the
region . . . and the whole point of the rebalance is to
keep doing what we have been doing.'' \5\
``The rebalance is part of a process, . . . We are
playing the long game here.'' ``This is something
that's going to take years to do, but it doesn't take
away from the fact that . . . we're off to a fast
start.'' \6\
In his remarks at CSIS in Washington prior to President
Obama's November trip to Southeast Asia, National Security
Advisor Tom Donilon outlined the President's rebalancing toward
Asia in general terms:
``The President . . . made a critical decision . . .
at the very outset of the administration to increase
our focus on the Asia Pacific, in terms of resources;
diplomatic activity and engagement, both with nations
and with regional institutions; and in terms of
policy.''
``He laid out our vision in Canberra last year. In
short, our overarching objective is to sustain a stable
security environment and a regional order rooted in
economic openness, peaceful resolution of disputes,
democratic governance, and political freedom.''
``The rebalancing of our posture toward the Asia
Pacific harnesses every element of our national
power.''
`` . . . our rebalancing . . . is defined by far more
than defense posture. It will continue to be defined by
deeper economic and political engagement. That includes
standing up for the freedom and dignity of the people
of the region.''
While administration officials may have been determined
that there is a strong case to be made for not disclosing their
pivot cards, there are high risks associated with such a
stance. Many officials in Southeast Asian countries are not
fully convinced as to the pivot's meaning or durability; they
lack details over the longer term. On the other hand, the
notion that additional specifics on the pivot or rebalancing
exercise will lessen or dampen any incentives on the part of
Southeast Asian leaders to ``normalize'' relations with the
current Chinese leadership is equally suspect. With China's
reemergence as a major actor in Southeast Asia, regional
leaders will strive to engage with China in ways that will
maintain national sovereignty and freedom of navigation of the
seas. While they welcome the express commitment by the United
States to apply greater resources and an enhanced presence,
including military, to the region, a ``balance'' as defined by
each country's leadership, will be sought. The pivot will
suffer as an integrating factor if it is ever perceived to be a
catalyst for Chinese interference or intrusion into the
territory or affairs of a neighboring sovereign country.
Congressional delegation meetings with U.S. and foreign
officials in Southeast Asia did little to contradict some of
the concerns raised by a CSIS Study Group over the
administration's rebalancing or pivot efforts: ``We found no
durable operational framework guiding the specific efforts
toward that goal, and without that framework, we found many
discontinuities.'' The CSIS study opined:
``The project team concluded that DoD has not
adequately articulated the strategy behind its force
posture planning nor aligned the strategy with
resources in a way that reflects current budget
realities. DoD needs to explain the purposes of force
posture adjustments in light of the new security
challenges in the Asian Pacific region.''
Recommendations
To instill confidence among Southeast Asian leaders and
extend more credibility to the pivot or rebalance
toward Asia, U.S. administration officials should
convey not only vision, but specific points of
anticipated pivot/rebalance content, including those
areas not directly related to security and defense that
go beyond existing bilateral engagement between the
U.S. and each of the countries.
The Nunn-Lugar CTR program should be an integral part of
the ``rebalance'' to Asia strategy by the Obama
administration.
Regarding the implementation of the Nunn-Lugar CTR program,
greater coordination is encouraged among the
Departments of Agriculture, State, Defense, Health and
Human Services (Centers for Disease Control), and other
appropriate departments and agencies to ensure seamless
implementation of efforts to identify and interdict WMD
or associated components.
------------
Notes:
\1\ U.S. Department of State.
\2\ ``Phuket Business: Thailand--U.S. Trade Reviving,'' Phuket
Gazette, September 10, 2012.
\3\ ``U.S. Relations with Thailand--Fact Sheet,'' Bureau of East
Asian Affairs, U.S. Department of State, July 31, 2012.
\4\ ``Philippine Deal May End Violence, Lure Investors: Southeast
Asia,'' Bloomberg News, Joel Guinto and Daniel Ten Kate,
October 8, 2012.
\5\ ``Panetta's Asia-Pacific Trip Seeks to Broaden Rebalance,''
American Forces Press Service, Cheryl Pellerin, November 12,
2012.
\6\ Ibid.