The Okinawan Perspective
Okinawa “reverted” from the US to Japan in 1972, but nearly four decades later most major US bases remain intact, taking up one-fifth of the land surface of Okinawa’s main island. Nowhere is more overwhelmed by the US military presence than the city of Ginowan, which has grown around the US Marine Corps Futenma Air Station. The US and Japan agreed in 1996 that Futenma would be returned, but made return conditional on construction of a replacement, which would also have to be in Okinawa, and not just anywhere in Okinawa but in environmentally sensitive north, the coral and forest environment of Henoko in Nago City, where a precious colony of blue coral was discovered only in 2007, where the internationally protected dugong graze on sea grasses, turtles come to rest, and multiple rare birds, insects, animals thrive.. Thirteen years on, there the matter still stands.
Between 1996 and 2005, a peace and environment citizens’ coalition fought the first version of that plan – for a pontoon-supported structure on the reef just offshore from Henoko (originally a modest “helipad,” as it was referred to in 1996, 45 metres in length according to the first designs), [40] which gradually grew to have a runway stretching to 2,500 meters across the coral – to such effect that in 2005, Prime Minister Koizumi cancelled it, citing "a lot of opposition." It was an unprecedented triumph for a mobilized citizenry over the combined resources of the two powerful states. The second, and current, version, adopted in 2006, was for a significantly expanded project, this time based on an onshore site in the same Henoko district. It would be built on land and landfill extending from the existing Camp Schwab US base into Oura bay and would boast dual 1,800 meter runways stretching out into Oura Bay, plus a deep sea naval port and other facilities, and a chain of helipads scattered through the forest - a comprehensive air, land and sea base able to project force throughout Asia and the Pacific.
Time and again, the project was blocked by popular opposition, but time and again the Japanese government renewed and expanded it. The struggle continues throughout Okinawa against this latest, largest, most environmentally devastating design. On the sea-floor from 2007, teams of divers acting as surveyors for the state, and even backed by a Maritime Self-Defense Force frigate, confronted civic opponents determined to defend the sea and its creatures; in San Francisco, a judge continued hearings in a suit against the Pentagon on behalf of the Okinawan dugong and their marine habitat; and at Henoko and Takae (deep in the forest) the sit-in continued.
Japan’s nation state under the “old regime” to 2009 of the Liberal-Democratic Party insisted that military priorities prevail over civil or democratic principle, the interests of the Japanese (and American) states over those of the Okinawan people, and the US alliance over the constitution. As government in Tokyo struggled to secure the compliance of the Okinawan people to their own continuing subordination to the military, Okinawa became Japan’s domestic “North Korea” in the sense of a prefecture committed to “Songun” (Military-First-ism). Except that in this case, it was a foreign military power imposing its will. It was bitter for Okinawans to have Nobel Peace laureate Obama continuing to thrust such priorities on them.
On the only occasion the people of Nago were consulted as to whether they would accept a new base, in a 1997 plebiscite, despite massive government intervention designed to sway them in favour, the outcome was unambiguously negative. In a bizarre outcome, the then mayor flew to Tokyo to announce the outcome, reject it on behalf of the City, and announce his resignation. For almost a decade thereafter, the views of Nago citizens were studiously ignored save that monies were poured in to “development” projects designed to subvert them. By dint of enormous effort, however, the people thus far have thwarted Tokyo’s and Washington’s plans.
In October 2009, the “sit-in” protest launched by that opposition at Henoko in 2004 passed its 2,000th day, well outlasting the Solidarnosc Polish worker sit-ins to become the longest in modern history. Despite pressures from the state, anti-base opinion in the prefecture seems, if anything, to have strengthened. Where, in 1999, opinion had been almost evenly divided between those who opposed relocation within Okinawa and those who were ready to accept it, a May 2009 survey by the Okinawa Times found prefectural opinion running at 68 per cent against and only 18 per cent in favour. [41] Six months later, in the heat of the current “battle of Okinawa,” a joint Mainichi shimbun and Ryukyu shimpo survey found the number of Okinawans who wanted the Futenma base shifted outside of Okinawa, whether in Japan or overseas, had risen to 70 per cent, while hardly anyone – a derisory 5 per cent – endorsed the Guam Agreement formula – the formula on which Washington and Washington were insisting, for a base to be constructed at Henoko. [42]
In the national elections of August 2009, DPJ candidates swept the polls in Okinawa, recording a higher vote than ever before in the proportional section and sweeping aside the representatives of the “old regime.” Both prefectural newspapers, the majority in the Okinawan parliament (the Prefectural Assembly, elected in 2008), are also opposed, [43] and 80 per cent of Okinawan mayors believe the Futenma base substitute should be constructed either overseas or elsewhere in Japan. [44] On 2 November, the Naha City Assembly passed a unanimous resolution calling for Futenma to be relocated beyond Okinawa, whether in Japan or elsewhere. [45]
Okinawan newspapers hardly circulate outside the prefecture, or mainland ones within it, and mainland Japanese opinion is remarkably ignorant, and unsympathetic, to Okinawa. Even the “liberal” Asahi editorially scolded the Hatoyama government, saying “There is a limit to Washington’s impatience … It would be very unfortunate for both countries if the Futenma issue became blown out of proportion.” [46] Okinawan civic thinking was paid little attention. At the time of Hillary Clinton’s February 2009 February visit to Tokyo, a representative group of Okinawan civic leaders wrote her an “Open Letter.” It read, in part: [47]
“Okinawa, a small island, has lived under such great stress for over sixty years. The presence of US military bases has distorted not only the politics and economy of Okinawa, but also its society itself and people’s minds and pride.
We do not need to remind you that Okinawa is not your territory. Your fifty thousand military members act freely as if this is their land, but, of course, it is not. Please remember that we, the Okinawa people, own “the inherent dignity” and “the equal and inalienable rights of all the members of the human family,” which is stated in the Universal Declaration of Human Rights, just as your family and friends do.
The governments of the United States and Japan legitimized the US military occupation of Okinawa with the San Francisco Treaty in 1952, and the reversion of administrative rights in 1972 created a structure of economic and financial dependency in exchange for the presence of US military bases on Okinawa. The governments have changed their strategy for maintaining the base presence from using force to using money.
This is very cruel treatment. The people of Okinawa have increased dependency on such money. The money has created a system which has corrupted our minds. It has taken away alternatives. The acceptance of US bases is seen as the only way to live. … It is as if the Japanese government has made Okinawa a drug addict and the US government takes full advantage of the addiction, in order to maintain its military presence …
In 2005 and 2006, the governments of the United States and Japan reached agreement on the construction of new bases and it seems that they are trying to make the US military presence in Okinawa permanent. This plan would add a further burden on the people of Okinawa who have suffered long enough.”
They ended by demanding cancellation of the Henoko plan, immediate and unconditional return of Futenma, and further reductions in the US military presence.
However, although “old regime” thinking, predicated on absolute compliance with the US and on continuing priority to US strategy and planning in determining Okinawa policy, long cultivated by conservative LDP governments in Tokyo, never sank roots in Okinawan society, it did sway high levels of Okinawan administration, especially the prefectural governor and the Nago mayor. In the LDP system, such local dignitaries focussed on “development,” “employment” and the “promotion” of Okinawa, avoiding any stance on base issues, while Tokyo poured in money designed to serve those purposes. A May 2007 law extended nation-wide the policy pioneered in Nago and Okinawa’s northern districts of reward for cooperation and punishment for recalcitrance in promoting US base interests.
Tokyo’s cultivation of regional dependence encouraged cynicism and corruption, while blocking development rooted in local needs. After a decade of such a system, Okinawa’s income levels remained the lowest in the country, unemployment was roughly double the national average, and virtually all local governments were in the throes of unsustainable fiscal crisis.
But, despite the “betrayal of the clerks,” the political winds of 2009 suggested that the Okinawan social consensus against base development had strengthened under the change of government. Certainly the political credibility of the promise of “development” in return for submission had been fatally weakened by failure to deliver. However, when in August 2009 the government of Japan that had tried unsuccessfully by every means to weaken, split, buy off and intimidate those opposed to the construction of the new base was itself thrown from office, the local representatives of the system in Okinawa, the Governor of the Prefecture and the Mayor of Nago, remained in office (till elections in 2010).
Both tried to shield their submission by seeking a slight revision of the Guam Agreement – to shift the construction design a short distance offshore – as if a reversion to the basic scheme of 1998-2005 would somehow solve the problem. Knowing the American resistance to the idea, they made it only in perfunctory way, with no attempt to insist on it. Governor Nakaima also spoke of a “best” solution – even if it was impractical - being relocation somewhere outside the prefecture.
It was characteristic of the Governor’s vacillation that he chose to absent himself from the prefecture on the occasion of the 8 November All-Okinawa Mass Meeting to express opposition to the Futenma relocation within Okinawa. When Okinawans joined in demanding the closure of the “world’s most dangerous base,” their Governor was in Washington. Days before the Mass Meeting, he stood alongside Kanagawa Governor Matsuzawa Shigefumi who, as head of the Association of Base-Hosting Japanese Prefectures, told their hosts that he saw no alternative to construction at Henoko of the Futenma replacement. [48] Nakaima protested only in the most feeble terms.
Regime Change
In the 64 years since the Marines stormed ashore on Okinawa amid a rain of fire and steel, the islands have known no peace. The intractable nature of the prefecture’s problem stems from the fact that the base issue is set in a procrustean bed of assumptions and principles inherited from the US occupation and the Cold War. Hatoyama might declare the aspiration for “equality” in the relation with the United States, but submission, and the assumption that to please the United States was the first principle of Japanese diplomacy was deeply entrenched. Apart from the $6 billion “relocation costs” for the Guam transfer it is estimated that the Henoko base construction, if it went ahead, would cost around one trillion yen (some $11 billion). These sums come on top of the annual subsidy of around 200 billion yen (roughly $2.2 billion) Japan has been paying the US ever since the reversion of Okinawa in 1972 under the rubric of “omoiyari” (consideration or sympathy, known in the US as “Host Nation Support”), [49] the $13 billion subsidy towards the costs of the Gulf War and the many subsequent appropriations towards the costs of the Afghanistan and Iraq wars. [50] It was once said of George W. Bush that he was inclined to think of Japan as “just some ATM machine” for which a pin number was not needed. Hatoyama has made no move to close the “sympathy” spigot, and must know that to do so would provoke Washington even more than his attempts to renegotiate the Guam Treaty.
The Japanese state of the “old regime” became a “mercenary in reverse,” one that paid to subject itself. To explain such a peculiar state formation and its accompanying psychology, I have suggested thinking of Japan as America’s “Client State,” i.e. a state that enjoys the formal trappings of Westphalian sovereignty and independence, and is therefore neither a colony nor a puppet state, but which has internalised the requirement to give preference to “other” interests over its own. [51]
Prime Ministers of the “old regime” sought ways to channel Japanese monies to Washington, while seeking in return help in shoring up their government and resisting the will of the Japanese people. It would be too much to think that a single election could securely install a “new regime,” but the Hatoyama government has taken some steps in that direction.
Throughout the post-1945 decades, there has never been such a confrontation between the US and Japan as grew during 2009 around the change of government in Tokyo. At issue, the Ryukyu Shimpo insisted on the eve of the All-Okinawa Mass Meeting, was nothing less than whether the Japanese constitution’s guarantees of popular sovereignty, basic human rights, and peace applied to Okinawa. [52] The Hatoyama government is split: Defense Minister Kitazawa for implementation of the Guam Agreement and construction at Henoko, Foreign Minister Okada for merger of Futenma facilities with those of the USAF base at Kadena on a 15 year limited basis, while Prime Minister Hatoyama has called for prioritizing the views of Okinawans.
By November, despite their worries, officials in Washington must have felt with satisfaction that they had accomplished a lot in a short space of time, opening divisions within the Hatoyama government. They would have noted with pleasure that Okinawa Governor Nakaima and Nago Mayor Shimabukuro had both kept a low profile as the crisis grew and maintained their distance both from the new Government in Tokyo and the Okinawan popular movement, and that both were conspicuously absent from the platform of the All-Okinawa Mass Protest meeting of 8 November. Washington would be bound to pay more attention to that fact, and to the message of quiet reassurance that Nakaima was delivering to his American hosts, than to the message of the Mass Meeting that followed days afterwards.
With the last shots from the Washington barrage still exploding around him [53] and Obama’s visit imminent, Hatoyama continued to study his options and Washington to insist on its demands. Hatoyama faced an impossible choice: he could reject the US demands, risking a major diplomatic crisis, or he could submit to them, provoking a domestic political crisis and driving Okinawans to despair. The optimism one could feel just a few short months ago as the new Government was elected slowly drained away.
Gavan McCormack is emeritus professor at Australian National University, coordinator of The Asia-Pacific Journal: Japan Focus, author, most recently, of Client State: Japan in the American Embrace (in English, Japanese, Chinese, and Korean), and contributes a monthly column to the Korean daily Kyunghyang shinmun. For his earlier articles on Okinawan matters, see The Asia-Pacific Journal. A much abridged version of this article is to be published in Korean in Kyunghyang shinmun on 10 November and in Japanese in Ryukyu shimpo on 11 November.
Recommended citation: Gavan McCormack, "The Battle of Okinawa 2009: Obama vs Hatoyama," The Asia-Pacific Journal, 46-1-09, November 16, 2009.
Notes
[1] “Agreement between the Government of Japan and the Government of the United States of America concerning the Implementation of the Relocation of 111 Marine Expeditionary Force Personnel and their Dependents from Okinawa to Guam,” Tokyo, 17 February 2009. Link
[2] For details, see my Client State: Japan in the American Embrace, London and New York, Verso, 2007.
[3] Admiral Timothy Keating, head of US Pacific Command, told a New York press conference in November 2008 that he did not expect the Roadmap target of 2014, “or maybe even 2015,” to be met. “Obama and Japan – Futenma relocation a pressing issue,” Yomiuri Shimbun, 20 November 2008.
[4] Reply by Prime Minister Aso to Diet question from Teruya Hironori, 5 March 2009. Link
[5] Sato Manabu, "Obama seiken no Amerika," in Miyazato Seigen, Arasaki Moriteru, and Gabe Masaaki, Okinawa jiritsu e no michi wo motomete, Tokyo, Kobunken, 2009, pp. 83-94
[6] It was used on 26 occasions between 1947 and 1957, to pass 28 laws, then not till Aso revived it in 2008, when he used it to railroad 10 bills on 8 occasions (Jimbo Taro, “Media hihyo” (20), Sekai, August 2009, pp. 92-99, at p. 92).
[7] For details, see , Yoshikawa Hideki, “Dugong Swimming in Uncharted Waters: US Judicial Intervention to Protect Okinawa's "Natural Monument” and Halt Base Construction,” The Asia-Pacific Journal 7 February 2009.
[8] Sakurai Kunitoshi, "The Guam treaty as a Modern 'Disposal' of the Ryukyus."
[9] Richard L. Armitage and Joseph S. Nye,” The US-Japan Alliance: Getting Asia Right through 2020,” CSIS Report, February 2007.
[10] Kaho Shimizu, “Greater security role is in Japan’s interest: Gates,” Japan Times, 10 November 2007.
[11]Yoichi Kato, “Interview/ Richard Lawless: Japan-U.S. alliance faces 'priority gap’,” Asahi shimbun, 2 May 2008.
[12] Quoted by Funabashi Yoichi, “Obama seiken to Nichibei kankei - Heiji no domei tsuikyu suru toki,” Asahi shimbun, 26 January 2009.
[13] "Clinton praises strong U.S.-Japan Ties," Yomiuri shimbun, 18 February 2009.
[14] AFP, “Clinton, Japan sign US troops pull-out deal,” Sydney Morning Herald, 18 February 2009.
[15] Hattori Peace-Net, “Guam kyotei iten no mondaiten,” 15 June 2009. See also Yamaguchi Hibiki, “Kaiheitai Guam iten,” Peoples Plan, Summer 2009, pp, 2-15.
[16] Satoshi Ogawa, “U.S. senate cuts funds for marines’ Guam move,” Daily Yomiuri Online, 7 November 2009.
[17] Hattori, cit.
[18] “Futenma wa kengai isetsu” (Futenma to be moved outside of Okinawa), See the Democratic Party’s “Okinawa Vision 2008.” However, in the 2009, pre-election version, the pledge was qualified to “move in the direction of re-examining the realignment of U.S. military forces in Japan.”
[19] Kurt Campbell and Michael Green, “Ozawa’s bravado may damage Japan for years,” Asahi shimbun, 29 August 2007.
[20] Maeda, pp. 15-18.
[21] Quoted in Narusawa Muneo, “Shin seiken no gaiko seisaku ga towareru Okinawa kichi mondai,” Shukan Kinyobi, 25 September 2009, pp. 13-15
[22] Asahi shimbun, 25 February 2009. See also Maeda Tetsuo, ‘Juzoku’ kara ‘jiritsu’ e – Nichibei Ampo o kaeru, Kobunken, 2009, pp. 17, 25.
[23] Yoichi Kato, “U.S. warm to proposal to reaffirm security pact,” Asahi shimbun, 23 July 2009.
[24] Quoted in Mure Dickie and Daniel Dombey, “Prospect of power softens DPJ’s stance,” Financial Times, 21 July 2009.
[25] “Bei kokan ‘minaosanu’ tsugitsugi,” Ryukyu shimpo, 3 September 2009
[26] Hiroshi Ito, “U.S. on Futenma revisit: Forget it,” Asahi shimbun, 2 September 2009.
[27] “’Kokka-kan no goi’ kyocho,” Okinawa Times, 4 September 2009.
[28] “Futenma isetsu dekineba Nichibei kankei ni dageki,, Bei kokan ga keikoku,” Asahi shimbun, 18 October 2009.
[29] John Pomfret and Blaine Harden, “U.S. pressures Japan on military package,” Washington Post, 22 October 2009.
[30] Ibid.
[31] “Joint Press Conference with Japanese Defense Minister Toshimi Kitazawa and Secretary of Defense Robert Gates,” Tokyo, 21 October 2009, Department of Defense, News Transcript. Link
[32] Michael Green, “Tokyo smackdown,” The New Foreign Policy.com, 23 October 2009.
[33] “Joint Chiefs chairman: Futenma must move to Nago,” Yomiuri shimbun, 24 October 2009.
[34] “Hatoyama, key ministers split on Futenma,” Weekly Japan Update, 29 October 2009.
[35] “Beigun saihen meguri gekiron – Minshu Okada kanjicho to bei kokubo jikan,” Nikkei Net, 26 July 2009.
[36] The Guardian, 10 August 2009.
[37] “Gaisho – Henoko-an o saimonshi, Futenma isetsu,” Okinawa Times, 23 October 2009.
[38] “Japan urges U.S. to respect ‘democracy’ over base,” AFP, 22 October 2009.
[39] “Okada gaisho hatsugen – boso suru Hatoyama seiken no genkai, Ampo no Okinawa izon kara dakkyaku o,” Ryukyu shimpo, 25 October 2009.
[40] Shimokobe Jun, then Vice-Minister at the National Lands Agency, quoted in Sato Manabu, “Obama seiken no Amerika,” cit, p. 90.
[41] “Futenma hikojo daitai, kennai isetsu hantai 68%,” Okinawa Times, 14 May 2009. In the Northern Districts (including Nago Ciy) opposition was even higher, at 76 per cent.
[42] “Futenma iten: Genko keikaku ni ‘hantai” 67%, Okinawa yoron chosa,” Mainichi shimbun, 2 November 2009; for a partial English account, “Poll: 70 percent of Okinawans want Futenma moved out of prefecture, Japan,” Mainichi Daily News, 3 November 2009. Foreign Minister Okada’s “Kadena option” also had scant support. 72 per cent of people opposed it.
[43] Gavan McCormack and Matsumoto Tsuyoshi, “”Okinawa says “No” to US base plan,” Japan Focus, 21 July 2008.
[44] 34 of 41 local government heads in Okinawa. “Futenma ‘kengai’ ‘kokugai’ 34 nin,” Okinawa Times, 30 October 2009.
[45] “Nahashi gikai Futenma no ‘kengai kokugai’ motome ikensho aketsu,” Ryukyu shimpo, 2 November 2009. Five Communist members absented themselves from the Chamber during the vote, but their position was that it was too soft; only Futenma’s immediate and unconditional return would satisfy them.
[46] “Relocating Futenma Base,” Asahi shimbun, 23 October 2009.
[47] “Hirari R. Kurinton Beikokumu chokan e no shokan (Open Letter to Secretary of State Clinton), by Miyaazato Seigen and 13 other representative figures of Okinawa’s civil society, 14 February 2009, (Japanese) text at “Nagonago zakki,” Miyagi Yasuhiro blog, 22 March 2009; English text courtesy Sato Manabu.
[48] Nakaima uttered the bizarre remark that he might not necessarily share Matsuzawa’s “tastes.” (“teisuto ga sukoshi watakushi to ha chigau ka mo shirenai,” (“Futenma kengai isetsu ha fukano’ ho-Bei chu no Kanagawa chiji ga koen,” Ryukyu shimpo, 6 November 2009; See also “Kanaga chiji, Henoko-an osu ‘Futennma isetsu,” Okinawa Times, 7 November 2009.)
[49] The figure of 5.5 trillion yen, 50 billion dollars, is the best estimate of the Japanese subsidy to Pentagon coffers over the years.
[50] On the latter, see my Client State: Japan in the American Embrace, passim.
[51] The definition here is one I adopt in the revised Japanese, Korean and Chinese editions of my 2007 book, Client State: Japan in the American Embrace.
[52] “Okinawa no min-i – Kennai isetsu ‘No’ ga senmei da,” Ryukyu shimpo, editorial, 3 November 2009.
[53] Ian Kelly of the Department of State, was quoted one week before Obama’s visit as saying “Japan has to decide what kind of relationship it wants with the US.” (“Futenma de Nihon seifu no boso ken’en, Beikokumucho,” Tokyo shimbun, 4 November 2009).
"Japan’s nation state (...) insisted that military priorities prevail over civil or democratic principle,"
Exatamente como nos Estados Unidos. Isso, realmente, foi copiado.
“Okinawa, a small island, has lived under such great stress for over sixty years. The presence of US military bases has distorted not only the politics and economy of Okinawa, but also its society itself and people’s minds and pride."
Mas o Peter_North acha que valeu a pena.
"Tokyo’s cultivation of regional dependence encouraged cynicism and corruption, while blocking development rooted in local needs. After a decade of such a system, Okinawa’s income levels remained the lowest in the country, unemployment was roughly double the national average, and virtually all local governments were in the throes of unsustainable fiscal crisis."
E é isso que devíamos ter aqui no Brasil também, de acordo com Peter_North e C. Eastwood.
"he was inclined to think of Japan as “just some ATM machine” for which a pin number was not needed."
Mas esse é um preço justo a se pagar para que os Estados Unidos fiquem satisfeitos conosco, acreditam Peter_North e o historiador C. Eastwood.