Humanitarian Assistance in Japan's Foreign Policy: Basic Principles and Mechanisms for Providing Humanitarian Aid

Melkonyan Lusine Assistant, Department of Theory and History of International Relations, RUDN University 117198, Russia, g. Moscow, ul. Miklukho-Maklaya, 10/2, of. 302 loussinneh@gmail.com Other publications by this author

Humanitarian assistance is one of the most important criteria for evaluating the effectiveness of a country's foreign policy activities. The provision of humanitarian assistance is currently a key area of Japan's international activities and foreign policy. Having the status of one of the largest donors of humanitarian aid and being the oldest member of the OECD Development Assistance Committee, Japan provides assistance in almost all zones of world conflicts and natural and man-made disasters.

Official development assistance (ODA) and humanitarian aid as its subspecies are considered as practical tools of international humanitarian activity in modern Japan. Japan's experience in the field of humanitarian assistance is the object of research by both Japanese and foreign authors who evaluate Japanese humanitarian assistance in different ways.

The Japanese policy in the field of humanitarian assistance in the modern sense can be talked about since the 1950s and 1960s, when during the post-war reconstruction, the activities of humanitarian organizations and movements resumed due to economic growth and democratization of public and political life of the country.

In the question of the definition of "humanitarian assistance", the Japanese government refers to the definition of the OECD DAC, according to which it is assistance aimed at "saving people's lives, alleviating their suffering, preserving and protecting human dignity, implemented based on the principles of humanism"^[1]. The goals of humanitarian assistance are designated as "protection of life, dignity, security and restoration of vital functions of the most vulnerable people, including refugees, internally displaced persons and victims of disasters." Tokyo expresses its readiness to comply with the basic principles of humanitarian assistance in accordance with the requirements of the OECD and take them into account in ensuring the security of the individual by achieving "freedom from want and freedom from fear"^[2].

Back in 1953, Japan began financing UN programs for Palestinian refugees, and in 1954 joined the Colombo Plan for Joint Economic and Social Development of Asia and the Pacific. The Colombo Plan, founded in 1950 and operating since 1951, is an international organization to assist in the development of the economies of the member States of the Asian and Pacific regions. The idea of creating the organization was put forward by Australia at the conference of the British Commonwealth countries in Colombo in January 1950. The purpose of the organization was to assist the Commonwealth countries in these regions. Currently, the organization includes 27 countries, including 6 creditor countries. Among them, the United States and Japan are the main donors.

In 1999, the Government of Japan adopted a medium-term policy program for official development assistance^[3]. It identified social and economic development, conflict prevention, and post-conflict reconstruction as priority areas. Humanitarian aid has thus become one of the areas of ODA. Through international organizations and directly, Japan provided ODA, allocating grants, providing long-term loans on preferential terms.

One of the specific features of the Japanese experience in providing humanitarian assistance is that in the post-war period, the country itself was a recipient of humanitarian aid from abroad, with the help of which it managed to recover from the devastating effects of the war. This favored the growth in Japanese society of awareness of the importance and necessity of providing humanitarian assistance to other countries affected by various disasters [Yeophantong, 2014: 5]. In general, Japanese society also supports the participation of Self-Defense Forces in international humanitarian activities, despite the fact that there is a significant percentage of Japanese who negatively view the participation of their citizens in international armed conflicts in one format or another [Nishikawa, 2006: 159].

In this regard, a number of researchers focus on the participation of Self-Defense Forces in Japan's humanitarian assistance policy. So, O.A. Dobrinskaya explores legislative innovations of 1992, 2001 and 2015, which brought this area in line with international standards, fixing the issue of physical participation of the Japanese contingent in eliminating the consequences of emergency situations, including post-conflict reconstruction, which is based on the concept of human security, as well as the use of official development assistance, thus making up for the lack of military personnel in the OPM through training of human resources, as well as financial and technological contributions [Dobrinskaya, 2020: 723]. Japanese researcher Yukiko Nishikawa analyzes humanitarian assistance in Japan's foreign policy strategy, noting that by intensifying activities in this area, the Japanese government seeks to increase the status and influence of the state in the international arena, while limiting itself to the framework of legal and moral concepts formed by the Constitution and under the influence of public opinion.

On July 12-13, 2000, the G8 Foreign Ministers' Summit in Miyazaki (Japan) adopted the "Miyazaki Conflict Prevention Initiatives"^[4]. At the same time, the Government of Japan presented a document entitled "Japan's actions on conflict prevention and development"^[5]. The document pointed to the importance of timely assistance, the need to reduce the time gap between humanitarian assistance and post-conflict reconstruction. In addition, the importance of involving NGOs and private companies in humanitarian activities was emphasized.   

Speaking about the conceptual foundations and key areas of humanitarian assistance, it should be noted that the main provisions of state policy in this area are contained in a document entitled "Japan's Humanitarian Aid Policy", published by the Japanese Foreign Ministry in 2011^[6]

The provisions of the State policy in the field of humanitarian assistance confirm the commitment to such basic principles as humanity, neutrality, independence and impartiality, on which Japan relies in its humanitarian activities and enshrines the recognition of these international norms in agreements and conventions that establish criteria and standards for the treatment of refugees, principles of bona fide humanitarian donation^[7], the Oslo Guidelines governing the use of military means to provide assistance in natural disasters^[8].

In 2015, according to the OECD DAC, Japan ranked 4th ($1.09 million) among the largest donors of humanitarian aid after the United States, the EU and the United Kingdom. In recent years, the Japanese Government has been increasing the volume of humanitarian aid financed from the Official Development Assistance Budget (OECD ODA) and accounting for about 10% of Japan's total ODA expenditures. Since 2007, the Government of Japan has been providing funds for the implementation of programs and activities aimed at improving the ability of humanitarian aid recipients to withstand disasters. The implementation of this approach in practice involves the transition from rescue operations to assistance in restoring normal life.

A distinctive feature of Japan's humanitarian assistance is an integrated approach to assistance with an emphasis on cooperation with international organizations and the attraction of available funds from various government departments and organizations.

Japan classifies its humanitarian aid to foreign countries into 3 categories: sending rescue teams to emergency zones, providing first aid items and providing financial assistance [Water, 2018: 291]. If the first 2 types of assistance are provided in case of natural disasters, man-made disasters, with the exception of armed conflicts, then financial assistance is provided only in case of emergencies^[9].

The key institution in the field of humanitarian assistance is the Ministry of Foreign Affairs of Japan. In case of emergencies, the Government of the affected State or representatives of an international organization, with the help of the Japanese Embassy, process a request for humanitarian assistance, after which the information is analyzed by the Ministry of Foreign Affairs, which decides on the types, volumes and timing of assistance based on consultations with other ministries and departments.

In emergency zones, the Japan International Cooperation Agency (JICA), which operates in 154 countries around the world, manages and coordinates humanitarian assistance. JICA is the successor of the organization of the same name, founded in 1974 and is a subordinate organization of the Ministry of Foreign Affairs of Japan. Since 2003, JICA has been an independent government agency whose main function is to coordinate Japan's ODA. The mission of the organization is to assist developing countries in socio-economic development and support international cooperation and mutual assistance. The agency's main tasks can be identified as finding solutions to global problems, eradicating poverty through economic growth, improving the efficiency of public administration, achieving security, etc.^[10].

JICA provides emergency relief items in the event of major natural disasters, mainly in developing regions, in response to requests received from the Governments of affected countries or international agencies.

According to JICA data, in the period from 1987-2016, the country provided rescue teams abroad about 150 times (to 44 countries) and organized the provision of basic necessities about 500 times^[11]. Japanese humanitarian aid was most often received by the countries of Southeast Asia, Africa, Central America and the Caribbean, such as Indonesia, Haiti, Ghana, Nepal, etc., as a result of natural disasters and catastrophes.  

In emergency zones, Japan provides financial assistance mainly on a bilateral basis. For countries that need humanitarian assistance on a regular basis due to frequent natural disasters, Japan has developed a mechanism called "Standby Emergency Credit for Urgent Recovery", which is a reserve emergency loan for urgent recovery and allows emergency financial assistance to be provided in a short time on the basis of preliminary agreements between Japan and the recipient country. As an example, we can draw an agreement between Japan and the Republic of Peru from 2014, which allowed Peru to receive an emergency loan of 10 billion Japanese yen (90 million US dollars) with a maturity of 40 years, as well as a similar agreement between Japan and the Philippines in 2015^[12]

In the field of humanitarian assistance, cooperation with international organizations is an important area. In 2006-2015 . Japan provided 50-95% of the funds allocated for humanitarian aid to international organizations. In 2015 alone, Japan allocated about 700 million US dollars for these purposes.

In providing humanitarian assistance, Japan mainly cooperates with specialized UN agencies — UNDP (UNDP), the Office of the United Nations High Commissioner for Refugees (UNHCR), the Office for the Coordination of Humanitarian Affairs (UNOCHA), the United Nations Children's Fund (UNICEF), the Central Emergency Response Fund (CERF), as well as the International Committee of the Red Cross (ICRC), the International Organization for Migration (IOM), etc.^[13]. 

In 2016, Japan took an active part in the preparations for the World Summit on Humanitarian Issues in Istanbul, at which it called for more effective humanitarian activities by building the capacity of local communities and local populations to withstand natural disasters^[14]. To achieve these goals, Japan has identified 5 priority areas of activity: interaction with a wide range of humanitarian and development partners, taking measures to reduce disaster risk, protecting and empowering women, and building innovative capacity^[15].

Assistance to South Sudan is also an example of Japan's humanitarian assistance in conflict zones. With the help of international organizations, the Japanese Government bilaterally provides financial and logistical assistance to the population of South Sudan after the outbreak of armed conflict there in 2013. Humanitarian activities in this country are funded by Japanese and international NGOs^[16].

Humanitarian assistance programmes include assistance in restoring economic and social infrastructure and measures to improve the living conditions of internally displaced persons and refugees. Japanese NGOs are also involved in projects to provide shelters, water supply, educational programs, and improve sanitary conditions. In the period from 2012-2017, the Self-Defense Forces carried out infrastructure restoration work within the framework of the UN Mission in the Republic of South Sudan (UNMIS) [Water, 2018: 296].

Of particular interest is the fact that Japan's international humanitarian activities are not limited to eliminating the consequences of emergency situations and providing significant amounts of financial assistance. It also contains the application of innovative practices and measures to restore affected areas and reduce the risk of natural disasters.

Thus, having analyzed the Japanese policy of humanitarian assistance, it is worth emphasizing that the country plays a leading role in the field of humanitarian assistance in the international arena and takes an active part in shaping the international agenda in this area.

The peculiarity of Japanese humanitarian assistance programs is that they are not limited to eliminating the consequences of emergency situations and providing financial assistance. These programs also contain the application of innovative practices and measures to restore affected areas, reduce the risk of natural disasters, and restore economic and social infrastructure, which is facilitated by Japan's enormous experience in eliminating the consequences of natural disasters.

Japan demonstrates a comprehensive approach to solving humanitarian problems, using all available and accessible means of Japanese state institutions and international organizations. A priority area in the field of humanitarian assistance for Japan is cooperation with international organizations (mainly with specialized UN agencies).

^[1] Humanitarian Assistance. Organisation for Economic Co-operation and Development. URL: https://www.oecd.org/dac/financing-sustainable-development/development-finance-topics/humanitarian-assistance.htm#:~:text=Humanitarian%20action%20saves%20lives%2C%20alleviates,conflict%2C%20shocks%20and%20natural%20disasters. (accessed: 06.07.2023). 

^[2] Humanitarian Aid Policy of Japan. Ministry of Foreign Affairs. July 2011. URL: https://www.mofa.go.jp/policy/emergency/pdfs/aid_policy_japan.pdf (accessed: 06.07.2023). 

^[3] Japan's Medium-Term Policy on Official Development Assistance (ODA). Ministry of Foreign Affairs of Japan. 10.08.1999. URL: https://www.mofa.go.jp/policy/oda/mid-term/1999/index.html (accessed: 05/20/2023). 

^[4] G8 Miyazaki Initiatives for Conflict Prevention. Ministry of Foreign Affairs of Japan. July 12-13, 2000. URL: https://www.mofa.go.jp/policy/economy/summit/2000/documents/initiative.html (accessed: 06/20/2023). 

^[5] Action from Japan on «Conflict and Development». Japan Development Cooperation for Conflict Prevention. Ministry of Foreign Affairs of Japan. July 2000. URL: https://www.mofa.go.jp/mofaj/gaiko/oda/bunya/conflict/pdf/action_from_japan.pdf (accessed: 06/20/2023). 

^[6] Humanitarian Aid Policy of Japan. Ministry of Foreign Affairs. July 2011. URL: https://www.mofa.go.jp/policy/emergency/pdfs/aid_policy_japan.pdf (accessed: 06.07.2023). 

^[7] A guide to international refugee protection and building state asylum systems. Handbook for Parliamentarians N° 27, 2017. Inter-Parliamentary Union and the United Nations High Commissioner for Refugees, 2017. URL: https://www.unhcr.org/3d4aba564.pdf (accessed: 06.07.2023). 

^[8] Oslo Guidelines on the Use of Foreign Military and Civil Defence Assets in Disaster Relief. Revision 1.1 November 2007. United Nations, Geneva. June 2008. URL: https://www.unocha.org/sites/unocha/files/OSLO%20Guidelines%20Rev%201.1%20-%20Nov%2007.pdf (accessed: 06.07.2023). 

^[9] Humanitarian assistance/Emergency Assistance. Ministry of Foreign Affairs. 24 April 2018. URL: http://www.mofa.go.jp/policy/emergency/index.html (accessed: 06.06.2023). 

^[10] Our Mission, Vision and Actions. Japan International Cooperation Agency (JICA). URL: https://www.jica.go.jp/english/about/mission/index.html#vision (accessed: 06/14/2023).

^[11] Emergency disaster relief as of August 2016. Japan International Cooperation Agency. URL: https://www.jica.go.jp/english/our_work/types_of_assistance/emergency.html (accessed: 06/14/2022).

^[12] Japanese ODA Loan. Ex-ante Evaluation. Japan International Cooperation Agency (JICA). 2014. URL: https://www2.jica.go.jp/en/evaluation/pdf/2013_PE-SB1_1_f.pdf (accessed: 07.07.2023).

^[13] Japan’s Humanitarian Assistance. Humanitarian Assistance and Emergency Relief Division, International Cooperation Bureau. Ministry of Foreign Affairs of Japan. 21.01.2021. URL: http://www.mofa.go.jp/files/000236450.pdf (accessed: 08.07.2023).

^[14] World Humanitarian Summit. Istanbul, 23-24 May 2016. URL: https://agendaforhumanity.org/summit (accessed: 08.07.2023).

^[15] Statement by H.E. Ms. Kazuko Shiraishi, Ambassador for Women, Human Rights and Humanitarian Affairs and Ambassador in charge of Arctic Affairs, Ministry of Foreign Affairs of Japan, at the 70th Session of the United Nations General Assembly High-Level Event on the World Humanitarian Summit. 30.09.2015. URL: https://www.mofa.go.jp/mofaj/files/000102188.pdf (accessed: 08.07.2023).

^[16] Japan’s assistance to South Sudan. Basic Policy Framework of Japan’s Assistance Programmes in South Sudan. Embassy of Japan to South Sudan. December 2015. URL: https://www.ss.emb-japan.go.jp/en/pdf_20151204.pdf (accessed: 08.07.2023).