Japan's latest people diplomacy rings hollow

By A.K.P. Mochtan

TOKYO (JP): The latest package of assistance from Japan to Southeast Asia was unveiled by Prime Minister Keizo Obuchi during the recent ASEAN plus three summit in Manila. Aimed at augmenting economic recovery in the region, the "Obuchi Plan" in effect reaffirms Japan's position as an important partner of ASEAN, especially in the economic and finance realms.

No one objected to the Japanese generosity. Assistance from Tokyo was in fact indispensable in light of the unusually severe consequences the 1997 financial crisis brought upon the region. In this context, the Miyazawa Initiative was indeed helpful to put the Southeast Asian tigers back on their feet.

The Obuchi Plan boasts new plans to bolster and sustain the region's nascent and precarious recovery. In a news conference announcing the scheme, Obuchi explained that the $500 million assistance was based on the findings of the Okuda Mission from a tour of the region, and it would focus on "people".

This is not the first time Japan has emphasized the importance of people's exchange in its overtures vis-a-vis the region. In contemporary time, the Fukuda Doctrine's "heart-to-heart" approach may be considered a precursor. Resemblance to this approach abounds thereafter.

The question is: Can Japan really fulfill its promises? There is concern whether the Gaimusho and other concerned agencies are able to undertake the necessary follow-up. This is inevitable with so many promises out there already, and a significant portion of them not fully implemented.

Goodwill aside, the persistent gap between intention and actions makes Japan susceptible to creating false expectations. It also creates an impression that Japan aims more at "quantity" rather than "quality." Issuing a policy statement and attaching a personal label to it seem to be the more important preoccupations. By contrast, implementation of the policy is a much quieter affair.

Last but not least, the plethora of the so-called "new initiatives" makes their substance questionable. What is claimed as a breakthrough is often mere repetition of past proposals, with superficial polishing here and there. A rare exception is the suggestion contained in the July 1997 "Hashimoto Doctrine", which was transformed into the ASEAN plus three summit. This aside, Japan's people diplomacy in general sounds hollow.

The newly announced Obuchi Plan is no different. Long on background, the report of the Okuda Mission, which forms the basis of the plan, contains few specifics -- none of them is original, and some are totally impractical in view of prevailing conditions in Japan.

Consider, for example, point two of the specific recommendations of the report, proposing to "Open Japan to the People of Asia". Among the main measures identified are the formulation of long term and large scale human exchange programs, enhancing foreign students acceptance, acceptance of foreign workers, and relaxing constraints on human exchange.

The report, however, fails to elaborate the envisaged large- scale programs, and other measures are only a continuation of past activities. Increasing the number of foreign students dates back to the 1983 national program of "100,000 foreign students", which is unfulfilled after more than 15 years in progress.

Prospects for increased acceptance of foreign workers are limited. The report acknowledges this as attributable to harsh immigration restrictions imposed by the concerned authority, even when the foreign workers possess the expertise and skills that Japan could use. Until and unless this constraint is addressed, other measures suggested by the report, such as using Haneda Terminal as an international airport, will therefore be inconsequential.

Overall, Japan's performance in the human exchange area requires much improvement. In particular, it should think and plan more thoroughly the finer details at the implementation stage. Without this, all of its goodwill and sincerity will fail to transpire.

For clarification, all these are not reasons for Japan to shy away from this critically important area, and to limit its engagements to areas where it excels, such as providing financial assistance. Human exchange is indispensable for many reasons. Foremost is the obvious and urgent need for human resource development in Southeast Asia. With its expertise and experience, Japan could make outstanding contributions to Southeast Asian causes. Hence, Japan must prevail, perfecting its performance along the way.

One point Japan should bear in mind is not to spoon-feed the recipient countries. Simply providing the cash will be counterproductive to the sustainability of human resource development. Instead of giving the fish, Japan should provide the rod so its Asian fellows can catch the fish themselves.

It is also important to conscientiously make the exchange reciprocal. This means not only targeting having more Asians come to Japan, but also facilitating more Japanese having hands- on experience about other Asian countries by living, studying and working there.

Imperfect as it may be, Japan's people diplomacy is not unwelcome. The Gaimusho should rest assured that its generosity and initiatives are noted. In order to make Japan's contributions in this area most effective, it is our responsibility to critically examine new plans and schemes, and provide constructive advice to help avoid pitfalls. With this note, the region looks forward to the implementation of the Obuchi Plan.

The author is an observer of international affairs, currently residing in Tokyo.