American forces landed and occupied Japan peacefully. The violence came later, however, in the assaults, robberies, and general mayhem committed by American troops against civilians. The Higashikuni cabinet succeeded the Suzuki cabinet on August 17 as a caretaker administration to carry out the surrender. The following day, Tanak Naraichi, director of the police bureau, Ministry of Home Affairs, ordered all police chiefs to "establish sexual comfort facilities" for the occupation army. Brothel operators were summoned to the Metropolitan Police Bureau in Tokyo and provided with Y100 million in government funds. A special comfort association, known in English as the Recreation and Amusement Association (RAA), was established. Announcements appealed for "employees":
"Women of the New Japan, Comfort stations for the occupation forces are being established as one of the national emergency measures for the postwar period. Your positive cooperation is requested."
Japanese women were offered up as human sacrifices to the American GIs. The objective was to propitiate the victors with sex and save the "good women" from unwonted advances. In this way, the government of Japan "positively cooperated" with the Occupation. The authorities had thought nothing of violating human rights during the war; they lost the war but not that attitude. The only difference was that now they were pimping for the occupation army. War or peace, women were victimized by the state. - Saburo, pp. 236-27.
US forces occupied the bulk of Japan, but some areas such as Hiroshima were occupied by British Commonwealth occupation forces (BCOF) composed of Australian, New Zealand, and Indian soldiers under the command of British officers. These forces also participated in the rape of civilians. A Japanese prostitute made the following comment...
"The Australian soldiers were the worst. They dragged young women into their jeeps, took them to the mountain, and raped them. I heard their screaming for help nearly every night. A policeman from the Hiroshima police station came to me, and asked me to work as a prostitute for the Australians - he wanted me and other prostitutes to act as a sort of "firebreak," so that young women wouldn't get raped. We agreed to do this, and contributed greatly." -Tanaka, pg. 104
The Japanese government had discussed ways of dealing with the anticipated problem of mass rape by occupation forces in the week following surrender and before their arrival. On August 21, 1945, Prime Minister Prince Higashikuni Naruhiko called a meeting of several of his ministers to discuss the issue; This was dubbed the "comfort-women meeting." They decided to set up the Recreation and Amusement Association (RAA) for the occupation forces. A special government fund of (starting with) 30 million yen was allocated to the project, and the head of the Japanese police force was ordered to take all measures necessary to assist such an organization... Governors and police chiefs of all prefectures had been instructed to procure women from geisha houses, brothels, and nightclubs in sufficient numbers to staff a nationwide organization of brothels.
The RAA was disbanded on March 27, 1946 (after 7 months), primarily in order to halt the rapid spread of venereal disease, but also because it was contrary to the principles of the "new democracy" that General MacArthur was trying to establish in the Japanese polity. Of course, prostitution on a large scale continued but as a private business activity. - Tanaka, pg. 105.