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. operational presence, deterrence, and power projection for potential responses to crises and disasters, counterterrorism, and contingencies in support of South Korea, Japan, the Philippines, Taiwan, or elsewhere in Asia. Since 2006, joint exercises based at Guam called “Valiant Shield” have boosted U.S. military readiness in the Pacific region. The defense buildup on Guam has been moderate. China 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 with China’s military.
In 2006, the United States and Japan agreed on a Realignment Roadmap to strengthen their alliance, including a buildup on Guam to cost $10.3 billion, with Japan contributing 60%. 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.
However, completion of the marines’ relocation by 2014 would be unlikely, and the original realignment actually would have involved more than moving 8,000 marines to Guam. Japan’s 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. Nonetheless, despite the dispute over the FRF, Japan has budgeted for its contributions to the marines’ relocation to Guam.
By 2011, some Members urged attention to concerns that included Japan’s impasse, expanded costs, and the delay in the realignment even as the U.S. military presence and readiness remain critical. On May 11, 2011, Senators Carl Levin, John McCain, and Jim Webb called for a review of plans to restructure military forces in South Korea, Japan, and Guam. Meanwhile, President Obama issued in January 2012 a new strategy of “rebalancing” priorities more to the Asia-Pacific region (in what some call a “pivot” to the Pacific). Finally, on February 8, the United States and Japan agreed to “adjust” the Roadmap and separate the move of marines from the plan for the FRF, in order to make progress separately. A U.S.-Japan Joint Statement of April 2012 specified that out of about 9,000 marines to be relocated from Okinawa, about 5,000 marines would move to Guam. Out of the new estimated cost of $8.6 billion, Japan would contribute $3.1 billion. In March 2013, the Commander of the Pacific Command (PACOM) testified to Congress that he estimated the completion of movement of marines to Guam by 2020.
Facing North Korea’s announced threats against Guam in March 2013, the Defense Department announced on April 3 that it would deploy to Guam within weeks a Terminal High Altitude Area Defense (THAAD) ballistic missile defense system as a precautionary measure to improve defenses against North Korea’s missile threat.
Legislation includes the National Defense Authorization Act (NDAA) for FY2013. Enacted on January 2, 2013, P.L. 112-239 authorized $159,904,000 for projects in Guam, recognizing its strategic value. For further discussion, see the section on Legislation. Updated as warranted, this CRS Report discusses major developments and policy issues related to the defense buildup.
Date of Report: April 11, 2013
Number of Pages: 29
Order Number: RS22570
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