Shirley A. Kan
Specialist in Asian Security Affairs
Since 2000, the U.S. military has been building up forward-deployed forces on the westernmost U.S. territory of Guam to increase U.S. presence, deterrence, and power projection for possible responses to crises and disasters, counterterrorism, and contingencies in support of South Korea, Japan, the Philippines, Taiwan, or elsewhere in Asia. Since 2006, three joint exercises based at Guam called “Valiant Shield” have boosted U.S. military readiness in the Asian-Pacific region. The defense buildup on Guam has been moderate. China still has concerns about Guam’s buildup, suspecting it to be directed against China. There has been concern that China and North Korea could target Guam with missiles. Still, Guam’s role increased in engaging China’s military.
In 2006, the United States and Japan agreed on a “Roadmap” to strengthen their alliance, including a buildup on Guam to cost $10.3 billion, with Japan contributing 60%. Primary goals were to start the related construction on Guam by 2010 and to complete relocation of about 8,000 marines from Okinawa to Guam by 2014. In Tokyo on February 17, 2009, the Secretary of State signed the bilateral “Agreement Between the Government of the United States of America and the Government of Japan Concerning the Implementation of the Relocation of the III Marine Expeditionary Force Personnel and Their Dependents From Okinawa to Guam” that reaffirmed the “Roadmap” of May 1, 2006. The two governments agreed that of the estimated $10.27 billion cost of the facilities and infrastructure development for the relocation, Japan will provide $6.09 billion, including up to $2.8 billion in direct cash contributions (in FY2008 dollars). The United States committed to fund $3.18 billion plus $1 billion for a road for a total of $4.18 billion.
However, completion of the marines’ relocation by 2014 seems unlikely. In September 2009, the Democratic Party of Japan (DPJ) became the ruling party. This political change raised uncertainty as Japan sought to re-negotiate the agreement, even while the United States sought its implementation. The dispute over the location on Okinawa of the Futenma Replacement Facility (FRF) to replace the Marine Corps Air Station Futenma raised implications for the relocation of marines from Okinawa to Guam. In January 2010, Japan promised to decide by May on the location of the FRF. Then, North Korea’s attack on South Korea’s naval ship Cheonan in March, and China’s deployment of its Navy near Okinawa which confronted Japan’s forces in April, catalyzed Japan to resolve the dispute in favor of stronger deterrence in alliance with the United States. On May 28, the Secretaries of Defense and State and their counterparts in Japan issued a “2+2” Joint Statement, in which they reaffirmed the 2006 Roadmap and the 2009 Agreement. In September 2010, the Navy and Army issued a Record of Decision that deferred some decisions for Guam. Nonetheless, despite the dispute over the FRF on Okinawa, Japan has funded in its defense budgets for direct contributions as well as loans for the marines’ relocation to Guam.
The National Defense Authorization Act (NDAA) for FY2010 (P.L. 111-84) authorized the first substantial incremental funding for the relocation of marines from Okinawa to Guam, but conditioned upon the Defense Department’s submission to Congress of a Guam Master Plan. Congress authorized a total amount (including for Defense-wide, Army, Navy, and Air Force) of almost $733 million. The NDAA for FY2011, P.L. 111-383, contained provisions related to realignment on Guam, after Congress expressed concern about insufficient information from the Defense Department (including on threats and a master plan for new construction). Updated as warranted, this CRS Report discusses major developments and policy issues. (On appropriations for military construction, see CRS Report R41345, Military Construction, Veterans Affairs, and Related Agencies: FY2011 Appropriations.)
Date of Report: February 18, 2011
Number of Pages: 14
Order Number: RS22570
Price: $29.95
Follow us on TWITTER at http://www.twitter.com/alertsPHP or #CRSreports
Document available via e-mail as a pdf file or in paper form.
To order, e-mail Penny Hill Press or call us at 301-253-0881. Provide a Visa, MasterCard, American Express, or Discover card number, expiration date, and name on the card. Indicate whether you want e-mail or postal delivery. Phone orders are preferred and receive priority processing.
Specialist in Asian Security Affairs
Since 2000, the U.S. military has been building up forward-deployed forces on the westernmost U.S. territory of Guam to increase U.S. presence, deterrence, and power projection for possible responses to crises and disasters, counterterrorism, and contingencies in support of South Korea, Japan, the Philippines, Taiwan, or elsewhere in Asia. Since 2006, three joint exercises based at Guam called “Valiant Shield” have boosted U.S. military readiness in the Asian-Pacific region. The defense buildup on Guam has been moderate. China still has concerns about Guam’s buildup, suspecting it to be directed against China. There has been concern that China and North Korea could target Guam with missiles. Still, Guam’s role increased in engaging China’s military.
In 2006, the United States and Japan agreed on a “Roadmap” to strengthen their alliance, including a buildup on Guam to cost $10.3 billion, with Japan contributing 60%. Primary goals were to start the related construction on Guam by 2010 and to complete relocation of about 8,000 marines from Okinawa to Guam by 2014. In Tokyo on February 17, 2009, the Secretary of State signed the bilateral “Agreement Between the Government of the United States of America and the Government of Japan Concerning the Implementation of the Relocation of the III Marine Expeditionary Force Personnel and Their Dependents From Okinawa to Guam” that reaffirmed the “Roadmap” of May 1, 2006. The two governments agreed that of the estimated $10.27 billion cost of the facilities and infrastructure development for the relocation, Japan will provide $6.09 billion, including up to $2.8 billion in direct cash contributions (in FY2008 dollars). The United States committed to fund $3.18 billion plus $1 billion for a road for a total of $4.18 billion.
However, completion of the marines’ relocation by 2014 seems unlikely. In September 2009, the Democratic Party of Japan (DPJ) became the ruling party. This political change raised uncertainty as Japan sought to re-negotiate the agreement, even while the United States sought its implementation. The dispute over the location on Okinawa of the Futenma Replacement Facility (FRF) to replace the Marine Corps Air Station Futenma raised implications for the relocation of marines from Okinawa to Guam. In January 2010, Japan promised to decide by May on the location of the FRF. Then, North Korea’s attack on South Korea’s naval ship Cheonan in March, and China’s deployment of its Navy near Okinawa which confronted Japan’s forces in April, catalyzed Japan to resolve the dispute in favor of stronger deterrence in alliance with the United States. On May 28, the Secretaries of Defense and State and their counterparts in Japan issued a “2+2” Joint Statement, in which they reaffirmed the 2006 Roadmap and the 2009 Agreement. In September 2010, the Navy and Army issued a Record of Decision that deferred some decisions for Guam. Nonetheless, despite the dispute over the FRF on Okinawa, Japan has funded in its defense budgets for direct contributions as well as loans for the marines’ relocation to Guam.
The National Defense Authorization Act (NDAA) for FY2010 (P.L. 111-84) authorized the first substantial incremental funding for the relocation of marines from Okinawa to Guam, but conditioned upon the Defense Department’s submission to Congress of a Guam Master Plan. Congress authorized a total amount (including for Defense-wide, Army, Navy, and Air Force) of almost $733 million. The NDAA for FY2011, P.L. 111-383, contained provisions related to realignment on Guam, after Congress expressed concern about insufficient information from the Defense Department (including on threats and a master plan for new construction). Updated as warranted, this CRS Report discusses major developments and policy issues. (On appropriations for military construction, see CRS Report R41345, Military Construction, Veterans Affairs, and Related Agencies: FY2011 Appropriations.)
Date of Report: February 18, 2011
Number of Pages: 14
Order Number: RS22570
Price: $29.95
Follow us on TWITTER at http://www.twitter.com/alertsPHP or #CRSreports
Document available via e-mail as a pdf file or in paper form.
To order, e-mail Penny Hill Press or call us at 301-253-0881. Provide a Visa, MasterCard, American Express, or Discover card number, expiration date, and name on the card. Indicate whether you want e-mail or postal delivery. Phone orders are preferred and receive priority processing.
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