Nation-building must be at the heart of Japan's diplomacy

Yoichi Funabashi, The Asahi Shimbun, Tokyo

From now on, Japan needs to focus on a nation-building diplomacy that is more flexible and sustainable. For that, it needs the participation and cooperation of the self defense forces and nongovernmental organizations and the diplomatic initiative and official development assistance to go with it.

What should Japan do if the United States attacks Iraq? It seems the time has come for Japan to make a decision.

The attack itself is still just hypothetical. Still, we need to seriously consider how Japan should act in light of its national interests and philosophy.

Whether or not military action complies with a (second) UN resolution greatly affects the situation. If it does, Japan is expected to express its "support." Otherwise, it may have no choice but to show only an "understanding."

In either case, it is important to show clearly what Japan can and cannot do. Japan should not take part in military action, including providing logistic support.

It should not shoulder the burden of paying for the war.

Currently, Japan is supplying fuel to U.S. warships in the Indian Ocean as part of the U.S.-led fight against al-Qaeda terrorists. Japan may be allowed to continue to supply fuel and even expand that practice to friendly forces other than U.S. forces but not go beyond that. In other words, it should stick to providing support from the sidelines.

Japan must not formulate its foreign and security policies based solely on its support for the United States and the maintenance of the Japan-U.S. alliance. If need be, Prime Minister Junichiro Koizumi must have the courage to say no to U.S. President George W. Bush.

What then can Japan do? It can support Iraq's postwar nation- building efforts. Japan should contribute to building and maintaining postwar peace, helping it take root in Iraq not only with money but also with personnel and knowledge. Neither should it spare physical labor to help the nation get back on its feet.

It is unlikely that democracy will emerge without a hitch in postwar Iraq. Elections may be held and the Constitution changed, but domestic ethnic and religious strife, clashing interests with neighboring countries and "oil politics" unique to oil-producing nations will make it difficult for democracy to be firmly established. Moreover, unless the peace process between the Israelis and Palestinians goes forward at the same time, there is little hope a lasting peace will be established in Iraq.

There is a limit to what Japan can do. Nevertheless, helping a postwar Iraq rebuild is an area where Japan can contribute to world peace and stability in its own way. Iraq is not the only country that needs help. Many struggling nations have fallen by the wayside with the post-Cold War collapse of the Eastern and Western blocs and the advancement of globalization.

The United Nations and major powers have no choice but to help them rebuild. In some cases, the use of military force is necessary. Japan also dispatched the Self-Defense Forces (SDF) to Cambodia and East Timor to support their nation-building.

Emphasis is shifting from peacekeeping to helping peace take root. From now on, Japan needs to focus on a nation-building diplomacy that is more flexible and sustainable. For that, it needs the participation and cooperation of the SDF and nongovernmental organizations and the diplomatic initiative and official development assistance to go with it.

However, nation-building cannot be accomplished with military power alone. It also needs measures in such nonmilitary areas as maintenance of order, refugee relief, education, the environment and economic development. In Iraq, groups from different ethnic and religious backgrounds have fought and killed one another. For such societies to rebuild, peaceful coexistence and reconciliation between warring groups must be established with the restoration of law and order. This is where Japan can step in as a civilian power.

In helping Iraq, Japan should recall its own postwar experience: How the nation was able to rebuild itself, join the international community and overcome its experience as a "loser."

Failed nations are the losers of the international community. Within each of them are groups further oppressed-by war, the establishment, a tattered economy or social problems. In ever increasing numbers, countries and people are being left behind. We must help them get back on their feet and incorporate them into the mainstream. Doing so gives rise to trust and reconciliation as well as reconstruction and development. That was how Japan made a fresh start after its defeat in World War II.

Like Iraq, North Korea has weapons of mass destruction. Its regime is in critical condition. The greatest task of Japan's nation-building diplomacy in the 21st century is the normalization of diplomatic ties with North Korea and making a contribution to the establishment of peace and stability on the Korean Peninsula, leading to eventual reunification. The experience Japan gains in helping Iraq rebuild can be applied to Japan's North Korea policy.

Furthermore, it can help shape a better future for the Japan- U.S. alliance. Proliferation of weapons of mass destruction, terrorism and failed nations are new threats. In dealing with them, countries should maintain and strengthen the mechanisms of deterrence and stability that alliances provide and make use of the United Nations to prevent conflicts. Currently, there is a tendency for the U.S. to take charge of military action and for allies to work on postwar reconstruction. This division of labor is likely to become increasingly fixed in the future.

Under such circumstances, the powerful role that allies play in nation-building also strengthens alliances and activates the United Nations. Nation-building must become the centerpiece of Japan's diplomacy.