In line with the upgraded National Security policy framework announced in December 2022 to bolster defence spending, Japan’s National Security Council adopted the “Implementation Guidelines for Japan’s Official Security Assistance (OSA)” on 5 April 2023[i], establishing a new cooperation framework apart from the Official Development Assistance (ODA) aimed at economic and social development of developing countries. The guidelines provide a new framework for cooperation for the benefit of Armed Forces and related organisations of “like-minded” countries referred to in the National Security Strategy (NSS) 2022.[ii] As per the guidelines, Japan believes that in the face of an increasingly severe and complex security environment, it is in its national interest to consistently make efforts that foster measures for enhancing the security and deterrence capabilities of like-minded countries.[iii]
The OSA is stated to be provided as a grant-in-aid to eligible countries, which are, in principle, developing countries and important for Japan’s national security as well as international peace and security. Under the OSA, Japan is also expected to provide equipment and supplies as well as assistance for infrastructure development to the countries to strengthen their security capacities and improve their deterrence capabilities.[iv]
The guidelines did take precautions in emphasising that the OSA will be provided in limited fields that have no direct relationship with any international conflicts.[v] The conditions applied suggest that Japan will be continuing the framework of the “Three Principles on Transfer of Defense Equipment and Technology and its Implementation Guidelines”.[vi] As per the Three Principles, Japan prohibits the transfer of defence equipment and technology under cases which violate obligations under treaties, international agreements that Japan has concluded, and the UNSC resolutions. Japan would grant only to cases which can actively contribute to the peace and security of Japan and the international community. The third principle also underscore that Japan’s prior consent should be taken by any recipient country regarding any extra-purpose use and third-party transfers.
During the beginning of the OSA announcement, news reports had suggested that four countries namely the Philippines, Malaysia, Bangladesh and Fiji would be initial recipients of the assistance in fiscal year 2023.[vii] They were expected to be granted aid from 2 billion yen (approx. 15 million USD)[viii] that had been allocated in the initial government budget.[ix] So far, Japan has officially completed “Signing and Exchange of Notes for Official Security Assistance (OSA)” with the Philippines[x] on 3 November 2023 and Bangladesh[xi] on 15 November 2023.[xii] As per Fig. 1 given below, Japan has provided approximately 1.18 billion yen (approx. 8.6 million USD) until now, using grants through the provision of patrol boats to Bangladesh and through the provision of coastal radar systems to the Philippines. On 17 November 2023, the Foreign Minister of Japan, Kamikawa Yoko stated that before the end of 2023, Japan will be working to decide on OSA for Malaysia and Fiji, the remaining candidates for the fiscal year 2023. The rest of the grant amount close to 825 million yen (approx. 6.4 million USD) from the total of 2 billion yen (approx. 15 million USD) is, therefore, expected to be disbursed amongst Malaysia and Fiji before the end of the year.
Fig. 1: Official Security Assistance
Source: Ministry of Foreign Affairs of Japan, 2023, “Official Security Assistance”, November 17, 2023, https://www.mofa.go.jp/fp/ipc/page22e_001067.html
In August 2023, news reports mentioned that the OSA for the fiscal year 2024 starting in April of that year has been earmarked for six countries which are Vietnam, Indonesia, the Philippines, Papua New Guinea, Mongolia and Djibouti.[xiii] It is expected that the OSA budget for the fiscal year 2024 will be about 5 billion yen (approx. 34.1 million USD)[xiv], an increase of 150 per cent from the 2023 allocations.[xv] It is important to note how Japan has earmarked continuing provision of aid to the Philippines through the OSA in fiscal year 2024 as well. The reason for Japan considering the Philippines for continued assistance stems from how it is strategically located facing important sea lanes for Japan in the South China Sea as well as the Luzon Strait.[xvi] The Philippines is a key partner for Japan to ensure the safety and security of these sea lanes in the region[xvii] and has, therefore, been considered a repeat candidate for the OSA in 2024.
Fig. 2: Japan’s Official Security Assistance (OSA) recipients for 2023 and 2024, Source: Google Maps
Fig. 2 provides a broad view of the targetted recipient countries for fiscal years 2023 and 2024 that Japan is deciding to help assist through the OSA. The Republic of the Philippines, Vietnam and Indonesia face an increasingly assertive China in the South China Sea. Papua New Guinea is at the centre of a geopolitical contest of influence, and the Chinese outreach strategy through infrastructure projects and investments is aiming to pull Port Moresby towards Beijing.
Some of the defence equipment and forms of aid that Japan has considered provisioning through the OSA to these friendly countries include satellite communication systems, radar equipment and patrol boats, and other forms of aid, such as building ports for military-civilian use, free of charge.[xviii]
Apart from the countries geographically located near Japan, the selection of Djibouti located on the eastern coast of Africa along the Gulf of Aden, as a recipient of the OSA is quite substantial. Primarily because Djibouti hosts a temporary Japanese base which can be stated as the only overseas outpost for Japan’s Self-Defense Force (SDF) personnel who are out on an anti-piracy mission in the Gulf of Aden. The Gulf of Aden provides a vital shipping lane that connects Japan with Europe via the Suez Canal. With 99.5 per cent of Japan’s international trade volume depending on maritime transportation, and approximately 1700 Japan-related vessels passing annually through the Gulf of Aden, the navigational safety of these waterways is always a present and critical issue for Japan.[xix] This results in the need for Japan to further invest in Djibouti’s ability to monitor territorial waters to protect maritime shipments across the region.
Mongolia, located between Russia and China, as one of the targetted recipient countries for the OSA in 2024 is symbolic of Tokyo’s active interest in assisting Ulaanbaatar to diversify its relations beyond Moscow and Beijing. Japan has been providing Official Developmental Assistance (ODA) to Mongolia since 1977.[xx] The Mongolia-Japan Strategic Partnership since 2010 was also elevated to a Special Strategic Partnership in December 2022.[xxi] Japan and Mongolia are also cooperating in promoting the “Free and Open Indo-Pacific” vision.[xxii]
Mongolia is also internationally recognised as the only country declaring its territory as a “single-state nuclear-weapon free zone”,[xxiii] which complements Japan’s non-nuclear weapons policy.[xxiv] Consequently, after the onset of the Russia-Ukraine conflict and the threat of the use of nuclear weapons, the security environment surrounding Mongolia assumed deeper significance for Japan. Mongolia is also abundant in underground mineral resources such as coal, copper, uranium, precious metals and lanthanide which is significant for Japan’s industries.[xxv] However, the plausible reason for considering Mongolia as a recipient country for OSA in 2024 can be explained by the geopolitical interest of Japan in making sure that Mongolia has adequate deterrence capabilities to continue as a functional electoral democracy in the greater neighbourhood between Russia and China.
The OSA is a new and untested policy, and it remains to be seen how it will be implemented and how effective it will be. It is a significant step forward and an additional tool for Japan's security policy and diplomacy reflecting the country's growing recognition of the need to play a more active role in regional security through overseas defence and security funding. However, it is uncertain whether developing nations, with their close economic ties to China, will embrace Japan's vision for the region.[xxvi] Furthermore, an increase in the range and sophistication of defence equipment that Japan would grant through the provisions of OSA could also exacerbate regional security concerns.[xxvii]
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*Dr Tunchinmang Langel, Research Fellow, Indian Council of World Affairs (ICWA)
Disclaimer: Views expressed are personal
Endnotes
[i] Ministry of Foreign Affairs of Japan, 2023, “Adoption of Implementation Guidelines for Japan’s Official Security Assistance (OSA)”, April 5, 2023, https://www.mofa.go.jp/press/release/press4e_003237.html (Accessed 17 November 2023)
[ii] Ministry of Foreign Affairs of Japan, 2022, “National Security Strategy of Japan”, December 16, 2022, https://www.cas.go.jp/jp/siryou/221216anzenhoshou/nss-e.pdf (Accessed 17 November 2023)
[iii] Ministry of Foreign Affairs of Japan, 2023, “Implementation Guidelines for Japan’s Official Security Assistance”, April 5, 2023, https://www.mofa.go.jp/files/100487375.pdf, (Accessed 17 November 2023)
[iv] Ministry of Foreign Affairs of Japan, 2023, “Official Security Assistance”, April 2023, https://www.mofa.go.jp/files/100487431.pdf (Accessed 20 November 2023)
[v] Ministry of Foreign Affairs of Japan, 2023, “Implementation Guidelines for Japan’s Official Security Assistance”, April 5, 2023, https://www.mofa.go.jp/files/100487375.pdf, (Accessed 17 November 2023)
[vi] Ministry of Foreign Affairs of Japan, 2014, “The Three Principles on Transfer of Defense Equipment and Technology”, April 1, 2014, https://www.mofa.go.jp/fp/nsp/page1we_000083.html (Accessed 17 November 2023)
[vii] The Yomiuri Shimbun, 2023, “Japan Plans Military Aid for 4 Countries Under New Framework”, April 3, 2023, https://japannews.yomiuri.co.jp/politics/defense-security/20230403-101311/ (Accessed 20 November 2023)
[viii] The Economic Times, 2023, “Japan to offer military aid to like-minded countries in a bid to counter China”, April 13, 2023,
https://economictimes.indiatimes.com/news/defence/japan-to-offer-military-aid-to-like-minded-countries-in-a-bid-to-counter-china/articleshow/99465800.cms (Accessed 28 November 2023)
[ix] Anri Takahashi, 2023, “Japan eyes 6 nations to receive security aid in fiscal 2024”, The Asahi Shimbun, August 28, 2023, https://www.asahi.com/ajw/articles/14991342 (Accessed 20 November 2023)
[x] Ministry of Foreign Affairs of Japan, 2023, “Signing and Exchange of Notes for Official Security Assistance (OSA) to the Republic of the Philippines”, November 3, 2023, https://www.mofa.go.jp/press/release/press4e_003330.html (Accessed 21 November 2023)
[xi] Ministry of Foreign Affairs of Japan, 2023, “Signing and Exchange of Notes for Official Security Assistance (OSA) to the People’s Republic of Bangladesh”, November 15, 2023, https://www.mofa.go.jp/press/release/press1e_000484.html (Accessed 21 November 2023)
[xii] The Daily Star, 2023, “Japan to provide four patrol ships to Bangladesh”, November 16, 2023, https://www.thedailystar.net/news/bangladesh/news/japan-provide-four-patrol-ships-bangladesh-3470966 (Accessed 28 November 2023)
[xiii] The Yomiuri Shimbun, 2023, “Japan Mulls Provision of Defense Equipment to 6 Like-minded Countries”, August 8, 2023, https://japannews.yomiuri.co.jp/politics/defense-security/20230808-128334/ (Accessed 21 November 2023)
[xiv] Anri Takahashi, 2023, “Japan eyes 6 nations to receive security aid in fiscal 2024”, The Asahi Shimbun, August 28, 2023, https://www.asahi.com/ajw/articles/14991342 (Accessed 20 November 2023)
[xv] The Yomiuri Shimbun, 2023, “Japan Mulls Provision of Defense Equipment to 6 Like-minded Countries”, August 8, 2023, https://japannews.yomiuri.co.jp/politics/defense-security/20230808-128334/ (Accessed 21 November 2023)
[xvi] Ministry of Foreign Affairs of Japan, 2023, “Signing and Exchange of Notes for Official Security Assistance (OSA) to the Republic of the Philippines”, November 3, 2023, https://www.mofa.go.jp/press/release/press4e_003330.html (Accessed 21 November 2023)
[xvii] Ghio Ong and Sheila Crisostomo, 2023, “Order in South China Sea should be governed by rules, not force”, Philstar Global, November 5, 2023, https://www.philstar.com/headlines/2023/11/05/2309047/order-south-china-sea-should-be-governed-rules-not-force (Accessed 28 November 2023)
[xviii] Anri Takahashi, 2023, “Japan eyes 6 nations to receive security aid in fiscal 2024”, The Asahi Shimbun, August 28, 2023, https://www.asahi.com/ajw/articles/14991342 (Accessed 20 November 2023)
[xix] Cabinet Secretariat The Government of Japan, “Japan's Actions against Piracy off the Coast of Somalia and in the Gulf of Aden”, March 2023, https://www.cas.go.jp/jp/gaiyou/jimu/pdf/siryou2/counter-piracy2022.pdf (Accessed 22 November 2023)
[xx] Ministry of Foreign Affairs of Japan, 2021, “Evaluation of Japan’s ODA to Mongolia”, March 2021, https://www.mofa.go.jp/policy/oda/evaluation/FY2020/pdfs/mongolia.pdf (Accessed 22 November 2023)
[xxi] Embassy of Mongolia in Tokyo, 2023, “From Strategic Partnership to ‘Special Strategic Partnership for Peace and Prosperity’”, April 11, 2023, https://tokyo.embassy.mn/post/1434 (Accessed 22 November 2023)
[xxii] The Associated Press, 2020, “Japan, Mongolia to cooperate on ‘Free and Open Indo-Pacific’ “, The Asahi Shimbun, October 10, 2020, https://www.asahi.com/ajw/articles/13805090 (Accessed 22 November 2023)
[xxiii] Ministry of Foreign Affairs of Mongolia, “Mongolia’s Nuclear-Weapon-Free Status”, https://mfa.gov.mn/en/documentation/61400/ (Accessed 28 November 2023)
[xxiv] Dorjsuren Nanjin and Mendee Jargalsaikhan, 2021, “Why does Japan include Mongolia in its FREE and OPEN Indo-Pacific Strategy?”, Friedrich-Ebert-Stiftung Mongolia & Mongolian Institute for Innovative Policies, https://library.fes.de/pdf-files/bueros/mongolei/17906.pdf (Accessed 23 November 2023)
[xxv] Embassy of Japan in Mongolia, 2012, “Directions of the Assistance to Mongolia”, April 2012, https://www.mn.emb-japan.go.jp/jp/kankei/mongoloda201204e-Direction%20of%20Assistance.pdf (Accessed 23 November 2023)
[xxvi] Anri Takahashi, 2023, “Japan eyes 6 nations to receive security aid in fiscal 2024”, The Asahi Shimbun, August 28, 2023, https://www.asahi.com/ajw/articles/14991342 (Accessed 20 November 2023)
[xxvii] Anri Takahashi, 2023, “Japan eyes 6 nations to receive security aid in fiscal 2024”, The Asahi Shimbun, August 28, 2023, https://www.asahi.com/ajw/articles/14991342 (Accessed 20 November 2023)