Back
About RSIS
Introduction
Building the Foundations
Welcome Message
Board of Governors
Staff Profiles
Executive Deputy Chairman’s Office
Dean’s Office
Management
Distinguished Fellows
Faculty and Research
Associate Research Fellows, Senior Analysts and Research Analysts
Visiting Fellows
Adjunct Fellows
Administrative Staff
Honours and Awards for RSIS Staff and Students
RSIS Endowment Fund
Endowed Professorships
Career Opportunities
Getting to RSIS
Research
Research Centres
Centre for Multilateralism Studies (CMS)
Centre for Non-Traditional Security Studies (NTS Centre)
Centre of Excellence for National Security
Institute of Defence and Strategic Studies (IDSS)
International Centre for Political Violence and Terrorism Research (ICPVTR)
Research Programmes
National Security Studies Programme (NSSP)
Social Cohesion Research Programme (SCRP)
Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
Other Research
Future Issues and Technology Cluster
Research@RSIS
Science and Technology Studies Programme (STSP) (2017-2020)
Graduate Education
Graduate Programmes Office
Exchange Partners and Programmes
How to Apply
Financial Assistance
Meet the Admissions Team: Information Sessions and other events
RSIS Alumni
Outreach
Global Networks
About Global Networks
RSIS Alumni
Executive Education
About Executive Education
SRP Executive Programme
Terrorism Analyst Training Course (TATC)
International Programmes
About International Programmes
Asia-Pacific Programme for Senior Military Officers (APPSMO)
Asia-Pacific Programme for Senior National Security Officers (APPSNO)
International Conference on Cohesive Societies (ICCS)
International Strategy Forum-Asia (ISF-Asia)
Publications
RSIS Publications
Annual Reviews
Books
Bulletins and Newsletters
RSIS Commentary Series
Counter Terrorist Trends and Analyses
Commemorative / Event Reports
Future Issues
IDSS Papers
Interreligious Relations
Monographs
NTS Insight
Policy Reports
Working Papers
External Publications
Authored Books
Journal Articles
Edited Books
Chapters in Edited Books
Policy Reports
Working Papers
Op-Eds
Glossary of Abbreviations
Policy-relevant Articles Given RSIS Award
RSIS Publications for the Year
External Publications for the Year
Media
Cohesive Societies
Sustainable Security
Other Resource Pages
News Releases
Speeches
Video/Audio Channel
External Podcasts
Events
Contact Us
S. Rajaratnam School of International Studies Think Tank and Graduate School Ponder The Improbable Since 1966
Nanyang Technological University Nanyang Technological University
  • About RSIS
      IntroductionBuilding the FoundationsWelcome MessageBoard of GovernorsHonours and Awards for RSIS Staff and StudentsRSIS Endowment FundEndowed ProfessorshipsCareer OpportunitiesGetting to RSIS
      Staff ProfilesExecutive Deputy Chairman’s OfficeDean’s OfficeManagementDistinguished FellowsFaculty and ResearchAssociate Research Fellows, Senior Analysts and Research AnalystsVisiting FellowsAdjunct FellowsAdministrative Staff
  • Research
      Research CentresCentre for Multilateralism Studies (CMS)Centre for Non-Traditional Security Studies (NTS Centre)Centre of Excellence for National SecurityInstitute of Defence and Strategic Studies (IDSS)International Centre for Political Violence and Terrorism Research (ICPVTR)
      Research ProgrammesNational Security Studies Programme (NSSP)Social Cohesion Research Programme (SCRP)Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
      Other ResearchFuture Issues and Technology ClusterResearch@RSISScience and Technology Studies Programme (STSP) (2017-2020)
  • Graduate Education
      Graduate Programmes OfficeExchange Partners and ProgrammesHow to ApplyFinancial AssistanceMeet the Admissions Team: Information Sessions and other eventsRSIS Alumni
  • Outreach
      Global NetworksAbout Global NetworksRSIS Alumni
      Executive EducationAbout Executive EducationSRP Executive ProgrammeTerrorism Analyst Training Course (TATC)
      International ProgrammesAbout International ProgrammesAsia-Pacific Programme for Senior Military Officers (APPSMO)Asia-Pacific Programme for Senior National Security Officers (APPSNO)International Conference on Cohesive Societies (ICCS)International Strategy Forum-Asia (ISF-Asia)
  • Publications
      RSIS PublicationsAnnual ReviewsBooksBulletins and NewslettersRSIS Commentary SeriesCounter Terrorist Trends and AnalysesCommemorative / Event ReportsFuture IssuesIDSS PapersInterreligious RelationsMonographsNTS InsightPolicy ReportsWorking Papers
      External PublicationsAuthored BooksJournal ArticlesEdited BooksChapters in Edited BooksPolicy ReportsWorking PapersOp-Eds
      Glossary of AbbreviationsPolicy-relevant Articles Given RSIS AwardRSIS Publications for the YearExternal Publications for the Year
  • Media
      Cohesive SocietiesSustainable SecurityOther Resource PagesNews ReleasesSpeechesVideo/Audio ChannelExternal Podcasts
  • Events
  • Contact Us
    • Connect with Us

      rsis.ntu
      rsis_ntu
      rsisntu
      rsisvideocast
      school/rsis-ntu
      rsis.sg
      rsissg
      RSIS
      RSS
      Subscribe to RSIS Publications
      Subscribe to RSIS Events

      Getting to RSIS

      Nanyang Technological University
      Block S4, Level B3,
      50 Nanyang Avenue,
      Singapore 639798

      Click here for direction to RSIS

      Get in Touch

    Connect
    Search
    • RSIS
    • Publication
    • RSIS Publications
    • CO13213 | Super Typhoon Haiyan: ASEAN’s Katrina Moment?
    • Annual Reviews
    • Books
    • Bulletins and Newsletters
    • RSIS Commentary Series
    • Counter Terrorist Trends and Analyses
    • Commemorative / Event Reports
    • Future Issues
    • IDSS Papers
    • Interreligious Relations
    • Monographs
    • NTS Insight
    • Policy Reports
    • Working Papers

    CO13213 | Super Typhoon Haiyan: ASEAN’s Katrina Moment?
    Euan Graham

    25 November 2013

    download pdf

    Synopsis

    Super-Typhoon Haiyan, which devastated large areas of the central Philippines on 8 November, may be seen in future as an exemplar for multinational naval Humanitarian Assistance and Disaster Relief (HADR) operations. Yet the relief effort is being led by extra-regional states, with ASEAN’s navies largely absent.

    Commentary

    THE UNFOLDING international response to Typhoon Haiyan, in the same super-destructive league as the 2004 Indian Ocean tsunami, Cyclone Nargis in 2008 and Japan’s 2011 triple disaster, has again underscored the naval dimension to Humanitarian and Disaster Relief (HADR) operations in Asia. The United States, United Kingdom and Japan have all deployed military assets commensurate with their large civilian aid efforts.

    ASEAN’s Secretary General visited Tacloban on 22 November 2013, to convey in person that “ASEAN is one community and we stand shoulder-to-shoulder with the Philippines in this very difficult time.” Several ASEAN members have also deployed defence assets, bilaterally, to support the relief operation. However, ASEAN itself has been slow to react. This is odd, considering the high-profile attention given to HADR cooperation within ASEAN itself, the ASEAN Regional Forum (ARF) and the ADMM Plus.

    Naval assets in HADR

    Indeed, the HADR response was primarily led by ASEAN’s regional and international partners as they deployed their naval vessels and aircraft to assist the Philippines. To be sure, naval assets are only one part of the HADR toolkit, which remains civilian-led, though navies are often first on scene. As displayed by the US, UK and Japan, they bring ready-made capabilities and skilled personnel for damage assessment, delivering emergency supplies directly to where they are needed most, and search and rescue. Ship-based command and communications can be vital for coordinating the wider relief effort when land-based civilian infrastructure is not up to the task.

    Navies’ ability to operate autonomously offshore for long periods confers unique advantages. It can help overcome land-based logistical bottlenecks. Politically, it can also mitigate the sensitivities of local populations towards a foreign military presence in the initial chaotic stages. Beyond the “first response” phase, a floating presence just out of sight gives stretched relief workers and vulnerable evacuees temporary respite in a safe “rear area” that carries its own force protection.

    As was the case during the Indian Ocean tsunami in December 2004, a nearby US aircraft carrier and its accompanying escorts were able to respond quickly. The USS George Washington carrier group commenced relief operations near Samar and Leyte on 14 November, ferrying emergency supplies to affected areas. The carrier alone can produce 1.5 million litres of fresh water daily.

    The 21 helicopters within its group, augmented by US Marine MV-22B Ospreys deployed from Okinawa, are providing an indispensable front-end airlift capability for the relief effort, easing bottlenecks in aid distribution that are compounded by the Philippines’ limited infrastructure and insular geography. The US Navy’s hospital ship USS Mercy will join the relief effort after crossing the Pacific.

    The UK Royal Navy, after a prolonged absence from the region, was also fortuitously well placed to respond. HMS Daring, a Type-45 destroyer, already present in the South China Sea for a Five Power Defence Arrangements exercise, was diverted to the Philippines and has begun delivering assistance near Cebu. HMS Illustrious, with a complement of seven helicopters, has also been diverted from the Gulf and will relieve Daring shortly.

    While Illustrious brings far more capability to the disaster zone, the fact that Daring and her crew were able to respond immediately is a good advertisement for the flexibility of other ships to serve in the HADR role, though dedicated training for such missions is essential.

    Where is ASEAN?

    The naval element will also be prominent in what promises to be Japan’s largest peacetime overseas deployment of the Self Defence Forces (SDF), involving 1,100 personnel, 16 military aircraft and three ships, including the flat-topped JDS Ise, which can carry several helicopters and a large volume of stores. Japan’s HADR contingent could not be dispatched until formally requested by the Philippines, even though defence cooperation between Tokyo and Manila has expanded recently. However, SDF vessels have now arrived in the Philippines. China’s modest financial contribution to the relief effort generated international criticism although China’s navy has belatedly dispatched a navy hospital ship to the Philippines.

    The more surprising omission is ASEAN, given its focus on HADR since the Indian Ocean tsunami. An ARF disaster relief exercise in Thailand this May was designed to improve “participants’ ability to rapidly provide coordinated and effective disaster relief”. In June, Brunei and Singapore co-hosted a combined military medicine/HADR exercise, with participation from all ten ASEAN members. The exercise aimed specifically “to enhance interoperability and understanding through cooperation and contribution of military assets and personnel from ADMM-Plus nations.”

    Singapore’s air force has delivered relief supplies to Tacloban and Cebu and, at the request of the Philippine military, has extended the deployment of the second of its C-130 transports. Brunei has announced the dispatch of a patrol vessel and fixed-wing aircraft, while Thailand has offered to provide a C-130 transport and medical assistance. Indonesia is contributing US$2 million in aid and sent 3 C-130 aircraft to distribute it.

    Urgent need for ASEAN Quick Response team

    Beyond such bilateral initiatives, however, there is little public evidence of an ASEAN-led coordinated effort translating into contributions of defence assets from member states, despite the Secretary General’s dual-hatted position as ASEAN Humanitarian Assistance Coordinator.

    The ASEAN Coordinating Centre for Humanitarian Assistance on disaster management, based in Jakarta, pre-positioned personnel in the Philippines shortly before the typhoon made landfall. On 10 November, the centre announced that it would share its assessment with “ASEAN member states and potential assisting entities to help them deciding the types of assistance to be provided”.

    However, comments attributed to the Thai and Indonesian foreign ministers at a press conference in Bangkok on 14 Novembers suggested some frustration that ASEAN’s response was materialising more slowly than that from extra-regional countries. Thai Foreign Minister Surapong proposed that “A quick response team is needed for ASEAN, the 10 countries have human resources and enough equipment, so it is time to share and cooperate”.

    At the national level, ASEAN has the requisite capabilities to respond to the international HADR effort in the Philippines. Moreover, the scale of devastation there means that even niche contributions will be useful, beyond the naval and airlift assets committed by the US, UK, Japan and others.

    Having made HADR the centrepiece of recent defence cooperation exercises, if ASEAN does not respond more convincingly to the real-life disaster in the Philippines, it risks missing its “Hurricane Katrina moment”. Haiyan may have passed, but its damaging potential remains.

    About the Author

    Euan Graham is Senior Fellow with the Maritime Security Programme of the Institute of Defence and Strategic Studies, a component of the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University.

    Categories: RSIS Commentary Series / Maritime Security / East Asia and Asia Pacific

    Synopsis

    Super-Typhoon Haiyan, which devastated large areas of the central Philippines on 8 November, may be seen in future as an exemplar for multinational naval Humanitarian Assistance and Disaster Relief (HADR) operations. Yet the relief effort is being led by extra-regional states, with ASEAN’s navies largely absent.

    Commentary

    THE UNFOLDING international response to Typhoon Haiyan, in the same super-destructive league as the 2004 Indian Ocean tsunami, Cyclone Nargis in 2008 and Japan’s 2011 triple disaster, has again underscored the naval dimension to Humanitarian and Disaster Relief (HADR) operations in Asia. The United States, United Kingdom and Japan have all deployed military assets commensurate with their large civilian aid efforts.

    ASEAN’s Secretary General visited Tacloban on 22 November 2013, to convey in person that “ASEAN is one community and we stand shoulder-to-shoulder with the Philippines in this very difficult time.” Several ASEAN members have also deployed defence assets, bilaterally, to support the relief operation. However, ASEAN itself has been slow to react. This is odd, considering the high-profile attention given to HADR cooperation within ASEAN itself, the ASEAN Regional Forum (ARF) and the ADMM Plus.

    Naval assets in HADR

    Indeed, the HADR response was primarily led by ASEAN’s regional and international partners as they deployed their naval vessels and aircraft to assist the Philippines. To be sure, naval assets are only one part of the HADR toolkit, which remains civilian-led, though navies are often first on scene. As displayed by the US, UK and Japan, they bring ready-made capabilities and skilled personnel for damage assessment, delivering emergency supplies directly to where they are needed most, and search and rescue. Ship-based command and communications can be vital for coordinating the wider relief effort when land-based civilian infrastructure is not up to the task.

    Navies’ ability to operate autonomously offshore for long periods confers unique advantages. It can help overcome land-based logistical bottlenecks. Politically, it can also mitigate the sensitivities of local populations towards a foreign military presence in the initial chaotic stages. Beyond the “first response” phase, a floating presence just out of sight gives stretched relief workers and vulnerable evacuees temporary respite in a safe “rear area” that carries its own force protection.

    As was the case during the Indian Ocean tsunami in December 2004, a nearby US aircraft carrier and its accompanying escorts were able to respond quickly. The USS George Washington carrier group commenced relief operations near Samar and Leyte on 14 November, ferrying emergency supplies to affected areas. The carrier alone can produce 1.5 million litres of fresh water daily.

    The 21 helicopters within its group, augmented by US Marine MV-22B Ospreys deployed from Okinawa, are providing an indispensable front-end airlift capability for the relief effort, easing bottlenecks in aid distribution that are compounded by the Philippines’ limited infrastructure and insular geography. The US Navy’s hospital ship USS Mercy will join the relief effort after crossing the Pacific.

    The UK Royal Navy, after a prolonged absence from the region, was also fortuitously well placed to respond. HMS Daring, a Type-45 destroyer, already present in the South China Sea for a Five Power Defence Arrangements exercise, was diverted to the Philippines and has begun delivering assistance near Cebu. HMS Illustrious, with a complement of seven helicopters, has also been diverted from the Gulf and will relieve Daring shortly.

    While Illustrious brings far more capability to the disaster zone, the fact that Daring and her crew were able to respond immediately is a good advertisement for the flexibility of other ships to serve in the HADR role, though dedicated training for such missions is essential.

    Where is ASEAN?

    The naval element will also be prominent in what promises to be Japan’s largest peacetime overseas deployment of the Self Defence Forces (SDF), involving 1,100 personnel, 16 military aircraft and three ships, including the flat-topped JDS Ise, which can carry several helicopters and a large volume of stores. Japan’s HADR contingent could not be dispatched until formally requested by the Philippines, even though defence cooperation between Tokyo and Manila has expanded recently. However, SDF vessels have now arrived in the Philippines. China’s modest financial contribution to the relief effort generated international criticism although China’s navy has belatedly dispatched a navy hospital ship to the Philippines.

    The more surprising omission is ASEAN, given its focus on HADR since the Indian Ocean tsunami. An ARF disaster relief exercise in Thailand this May was designed to improve “participants’ ability to rapidly provide coordinated and effective disaster relief”. In June, Brunei and Singapore co-hosted a combined military medicine/HADR exercise, with participation from all ten ASEAN members. The exercise aimed specifically “to enhance interoperability and understanding through cooperation and contribution of military assets and personnel from ADMM-Plus nations.”

    Singapore’s air force has delivered relief supplies to Tacloban and Cebu and, at the request of the Philippine military, has extended the deployment of the second of its C-130 transports. Brunei has announced the dispatch of a patrol vessel and fixed-wing aircraft, while Thailand has offered to provide a C-130 transport and medical assistance. Indonesia is contributing US$2 million in aid and sent 3 C-130 aircraft to distribute it.

    Urgent need for ASEAN Quick Response team

    Beyond such bilateral initiatives, however, there is little public evidence of an ASEAN-led coordinated effort translating into contributions of defence assets from member states, despite the Secretary General’s dual-hatted position as ASEAN Humanitarian Assistance Coordinator.

    The ASEAN Coordinating Centre for Humanitarian Assistance on disaster management, based in Jakarta, pre-positioned personnel in the Philippines shortly before the typhoon made landfall. On 10 November, the centre announced that it would share its assessment with “ASEAN member states and potential assisting entities to help them deciding the types of assistance to be provided”.

    However, comments attributed to the Thai and Indonesian foreign ministers at a press conference in Bangkok on 14 Novembers suggested some frustration that ASEAN’s response was materialising more slowly than that from extra-regional countries. Thai Foreign Minister Surapong proposed that “A quick response team is needed for ASEAN, the 10 countries have human resources and enough equipment, so it is time to share and cooperate”.

    At the national level, ASEAN has the requisite capabilities to respond to the international HADR effort in the Philippines. Moreover, the scale of devastation there means that even niche contributions will be useful, beyond the naval and airlift assets committed by the US, UK, Japan and others.

    Having made HADR the centrepiece of recent defence cooperation exercises, if ASEAN does not respond more convincingly to the real-life disaster in the Philippines, it risks missing its “Hurricane Katrina moment”. Haiyan may have passed, but its damaging potential remains.

    About the Author

    Euan Graham is Senior Fellow with the Maritime Security Programme of the Institute of Defence and Strategic Studies, a component of the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University.

    Categories: RSIS Commentary Series / Maritime Security

    Popular Links

    About RSISResearch ProgrammesGraduate EducationPublicationsEventsAdmissionsCareersVideo/Audio ChannelRSIS Intranet

    Connect with Us

    rsis.ntu
    rsis_ntu
    rsisntu
    rsisvideocast
    school/rsis-ntu
    rsis.sg
    rsissg
    RSIS
    RSS
    Subscribe to RSIS Publications
    Subscribe to RSIS Events

    Getting to RSIS

    Nanyang Technological University
    Block S4, Level B3,
    50 Nanyang Avenue,
    Singapore 639798

    Click here for direction to RSIS

    Get in Touch

      Copyright © S. Rajaratnam School of International Studies. All rights reserved.
      Privacy Statement / Terms of Use
      Help us improve

        Rate your experience with this website
        123456
        Not satisfiedVery satisfied
        What did you like?
        0/255 characters
        What can be improved?
        0/255 characters
        Your email
        Please enter a valid email.
        Thank you for your feedback.
        This site uses cookies to offer you a better browsing experience. By continuing, you are agreeing to the use of cookies on your device as described in our privacy policy. Learn more
        OK
        Latest Book
        more info