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Issue B ie
Sep embe 17, 2025
Japan’s O icial Secu i y Assis ance o he Philippines:
Legi imizing a New S a egic Tool
Pihla Kukkonen and Julie Yu-Wen Chen
In Japan’s upda ed Na ional Secu i y S a egy (NSS)
o 2022, i was announced ha “a new coope a ion
amewo k o he bene i o a med o ces and o he
ela ed o ganiza ions,” which s ands apa om
O icial De elopmen Assis ance (ODA), would
be es ablished. Wha came o be known as Japan’s
O icial Secu i y Assis ance (OSA) was launched
o icially in Ap il 2023,1 wi h he Philippines,
Malaysia, Bangladesh, and Fiji chosen as he i s
ecipien s o his aid. The p og am’s o al budge in
2023 was JPY 2 billion, and he aid was ea ma ked
o enhance a eas o ma i ime secu i y by p o iding
equipmen , such as a coas al ada sys em and pa ol
boa s. The p og am was enewed o 2024, wi h he
budge ising o JPY 5 billion, and mo e coun ies
added. In Ap il 2025, he Philippines was app o ed
o wo consecu i e yea s o OSA aid.
OSA s ands ou as an excep ion o Japan’s adi ional
aid policy, as i aims o enhance ecipien coun ies’
mili a y capabili ies, whe eas ODA was ea ma ked
o humani a ian pu poses and disas e elie wi h
Pho o c edi : SLdesign / Shu e s ock.com
Bo h Japan and he Philippines a e na iga ing an inc easingly in ica e secu i y landscape, in which
a ious ac o s––China being he mos signi ican ––a e making unila e al e o s o al e he egional
powe dynamics. The ensions a e pa icula ly concen a ed in he ma i ime domain, wi h he Philippines
eme ging as a p ominen ad e sa y o China’s ac ions in he Sou h China Sea. Nume ous ques ions emain
ega ding he aid p og am’s u u e ajec o y. This issue b ie examines how he Japanese go e nmen
es ablishes legi imacy o ex end i s O icial Secu i y Assis ance (OSA) o he Philippines. Japan is explo ing
he bounda ies o i s ole as a secu i y ac o and he ex en o which i can b oaden i s new aid ini ia i e,
wi h much o OSA’s u u e implemen a ion and ans o ma ion hinging on he in e na ional communi y
and ecipien na ions’ esponses.
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aid o mili a y pu poses s ic ly o bidden, he eby
aligning wi h Japan’s adi ional aid policy. Al hough
he link be ween aid and secu i y g adually has
been s eng hened o e ime h ough e isions o
he ODA cha e , Japan es ablished OSA o adjus
o wha has been desc ibed as he mos se e e and
complex secu i y en i onmen since Wo ld Wa II.
OSA’s c ea ion indica es a change in Japan’s ole as
a secu i y ac o . Japan adi ionally has abs ained
om in ol emen in egional secu i y issues, aiming
ins ead o build s abili y in he egion by suppo ing
Sou heas Asian na ions’ economic de elopmen
while gaining access o c i ical ade ou es and
esou ces. Japan’s ole as a secu i y ac o also has
been limi ed his o ically by i s pos wa cons i u ion,
which bans he use o wa as a means o sol ing
in e na ional dispu es and hea ily es ic s Japan’s
capabili y o main ain a med o ces. Consequen ly,
paci ism has become an in eg al pa o he coun y’s
o eign policy and na ional iden i y. O he o eign
policy guidelines, including he Th ee P inciples
on T ans e o De ense Equipmen and Technology
in he Uni ed Na ions Cha e , also ha e impac ed
Japan’s o eign policy s ance signi ican ly, as hey
p ohibi supplying equipmen o coun ies ha a e
pa ies o a con lic . Mo eo e , Japan’s egional policy
has been de ined by pos wa epu a ional issues,
wi h coun ies ha su e ed du ing Japan’s p e-
1945 ac ions iewing Japan nega i ely, p omp ing
Tokyo o apply eassu ance echniques o alle ia e
po en ial ea s o emili a iza ion and po ay i sel
as a peace ul ac o .2
Th ough he OSA’s implemen a ion, Japan appea s
o be es ing he limi s o how much agency i can
ake in egional secu i y issues. The new aid p og am
indica es a clea e o on Japan’s pa o es ablish
i sel as a p ominen and p oac i e secu i y ac o , a
de elopmen ha can be aced back o he end o he
Cold Wa and which in ensi ied du ing Shinzo Abe’s
second e m, as he pushed o eposi ion Japan as a
signi ican playe on he global s age. Acco dingly,
OSA appea s o be aking ano he s ep away om
Japan’s pos wa paci is policies. Despi e OSA being
implemen ed wi h he Th ee P inciples on T ans e
o De ense Equipmen and Technology, i canno be
gua an eed ha he equipmen p o ided h ough
he p og am, which includes in es men s in dual-use
in as uc u e, will no be used in a u u e con lic
by he ecipien . Japan’s p oac i e shi in i s policy
on mili a y coope a ion wi h ecipien s also could
ins iga e ea s in neighbo ing coun ies conce ning
Japan’s ea mamen and depa u e om i s ole as a
peace ul ac o .
This issue b ie examines key o icial documen s
conce ning OSA o unde s and how he Japanese
go e nmen has a emp ed o posi ion he new aid
p og am wi hin i s exis ing o eign policy amewo k
and ea n legi imacy om he in e na ional
communi y o i s e ol ing ole and ac i i ies in he
Indo-Paci ic egion. OSA can be iewed as a ype
o p eceden o Japan’s u u e secu i y coope a ion
schemes. Special a en ion has been paid o OSA
p ojec s wi h he Philippines o unde s and wha
coope a ion unde he new assis ance scheme looks
like wi h a long- e m aid ecipien , how po en ial
ensions in he ela ionship a e add essed by bo h
pa ies, and wha u u e coope a ion unde OSA o
o he simila mechanisms could en ail.
We examine key documen s gene a ed by he
Japanese go e nmen o collabo a i ely p oduced
wi h he Philippine go e nmen , such as he
Na ional Secu i y S a egy (2022),3 Implemen a ion
Guideline o Japan’s O icial Secu i y Assis ance
(2023), Japan-Philippines Join S a emen (2023),4
Join P ess S a emen o he Ou come o he Visi
o Japanese P ime Minis e Kishida Fumio o he
Philippines (2023),5 2023 and 2024 p ess eleases
conce ning he signing and exchange o no es
o OSA o he Philippines,6 join p ess elease
Th ough he OSA’s
implemen a ion, Japan appea s
o be es ing he limi s o how
much agency i can ake in
egional secu i y issues. The
new aid p og am indica es a
clea e o on Japan’s pa o
es ablish i sel as a p ominen
and p oac i e secu i y ac o .
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on he Ou come o he 2nd Fo eign and De ense
Minis e ial Mee ing (2+2) (2024),7 and O icial
Secu i y Assis ance (2025).8 Fou key ea u es o he
discou ses behind he OSA can be iden i ied.
Fi s , OSA was associa ed wi h Japan’s paci is
ini ia i es and was u ilized o main ain i s image
as a peace ul en i y. In he 2023 Implemen a ion
Guidelines o Japan’s O icial Secu i y Assis ance,
he wo ds “peace”, “peace ul” o “peace-lo ing” we e
ea u ed a o al o 15 imes, connec ing he aid ype
o mili a y o ganiza ions o Japan’s peace-lo ing
philosophy.9 Conside ing ha his is he main
documen explaining OSA’s objec i es, policies, and
implemen a ion p inciples, he high occu ence o
paci is he o ic is no able.
Japan’s shi owa d p oac i e paci ism occu ed in
he 2010s unde Abe’s di ec ion, ad ancing he idea
ha Japan should con ibu e p oac i ely o peace
based on he p inciple o in e na ional coope a ion.
The concep also includes accep ance o mili a y
powe ’s ole in peace. So a , he mos conc e e
change o Japan’s paci ism has been he 2014 e ision
ha ended Japan’s ban on exe cising collec i e sel -
de ense o aiding a iendly coun y unde a ack.
I was a gued ha amid a changing egional powe
balance and an inc easingly asse i e China,10 Japan
needed mo e lexibili y in i s policy.11
In Japan’s o icial documen s, peace he o ic is
employed almos excessi ely o illus a e he
By aligning OSA wi h Japan’s
paci is amewo k and
placing special emphasis on
i s connec ion o p oac i e
paci ism, he aid p og am
is po ayed as an essen ial
mechanism in main aining
and s eng hening
peace in he egion.
ela ionship be ween OSA and p oac i e paci ism.
Fo example, he 2022 NSS asse s ha Japan will
adhe e o a undamen al policy o main aining
a de ense pos u e ha is exclusi ely na ional
de ense-o ien ed, which se es o mi iga e any
po en ial skep icism ega ding Tokyo’s shi om i s
adi ional de ense s ance. Fu he mo e, he 2023
Implemen a ion Guidelines o Japan’s O icial
Secu i y Assis ance s a es ha “o e he yea s, Japan
has de o ed i sel o p omo ing peace wo ldwide”
and ha OSA aims o “con ibu e o main aining
and s eng hening in e na ional peace and secu i y.”
The e bs “p omo ing” and “con ibu e” in oke
no ions o ac i e engagemen . A simila ly p oac i e
expec a ion also is placed on ecipien coun ies,
which a e expec ed “ o be able o con ibu e o
egional peace, s abili y, and secu i y by hemsel es”
h ough aid p o ision.
By aligning OSA wi h Japan’s paci is amewo k
and placing special emphasis on i s connec ion o
p oac i e paci ism, he aid p og am is po ayed
as an essen ial mechanism in main aining and
s eng hening peace in he egion. This esul s in a
balancing ac in which Japan seeks o main ain i s
image as a peace s a e, i.e., “heiwa kokka (平和国
家),” while simul aneously expanding and adjus ing
i s ole as a secu i y ac o in a apidly changing
secu i y en i onmen .
The o icial documen s also indica ed ha OSA is
an essen ial ool o main aining and s eng hening
peace. When conside ing he ields in which OSA
aid should be p o ided, p io i ies will be gi en
based on he impo ance o Japan’s na ional secu i y
and in e na ional peace and secu i y. Examina ion
o OSA coope a ion be ween Japan and he
Philippines demons a es he ype o ecipien -dono
ela ionships Japan aims o main ain h ough OSA
and how Japan’s epu a ional issues a e managed
unde he new secu i y assis ance p og am.
The second ea u e o discou ses a ound OSA is
ha Japan’s ela ions wi h a ecipien coun y a e
amed as being based on equali y, ecip oci y,
and mu ual unde s anding. I also has been
demons a ed ha OSA can be used o suppo
and ul ill bo h coun ies’ sha ed objec i es. When
discussing he quali y o he Japan-Philippines
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ela ionship, emphasis is placed on empo al
longe i y: I is desc ibed as one based on a s ong
his o ical ounda ion (“decades-old”)12 unde sco ed
by “ iendly and his o ical ies wo en h ough
decades o exchanges,” wi h a clea u u e di ec ion
(“ ans o ma i e and o wa d-looking”).13 Japan’s
holis ic commi men o suppo ing he Philippines’
de elopmen also is highligh ed. Al hough special
emphasis is placed on s eng hening coope a ion
on secu i y and de ense in all he documen s,
collabo a ion is conduc ed ac oss mul iple sec o s,
including cybe secu i y and economic esilience,
and Philippine P esiden Bongbong Ma cos is said
o alue Japan’s “s ong in en ion” o suppo his
coun y’s u u e de elopmen e en as i eaches
uppe -income s a us.14
These sha ed undamen al p inciples and alues,
as well as Japan’s suppo o he cen ali y o he
Associa ion o Sou heas Asian Na ions (ASEAN),
u he consolida e he image o a ela ionship
based on mu ual espec . On a p ac ical le el, bo h
coun ies a e said o sha e he same goals o peace
and s abili y in he egion, and he pa ne ship hey
a e wo king owa d should espond o con empo a y
needs and goals. This ela ionship’s aming unc ions
o alle ia e po en ial ensions in he dono - ecipien
ela ionship, as well as ea s conce ning Japan’s neo-
impe ial secu i y ac i i ies wi h pa ne coun ies,
g an ing legi imacy o he es ablishmen o OSA,
which also can be iewed as an e o o consolida e
he pa ne ship in he long un.
The emphasis on equali y in he aid ela ionship is pa
o a long- e m ansi ion in Japan’s hinking: Ra he
han iewing aid as a one-way p ocess, p oac i i y
and ecip oci y a e expec ed om bo h sides. As
demons a ed in he ODA cha e o 2015, i was
he i s ins ance in which he wo ds “de elopmen
coope a ion” we e used ins ead o “assis ance.”
15 In p ac ice, acco ding o he Japan-Philippines
Join S a emen ,16 bo h pa ne s a e commi ed o
inc easing hei own de ense capabili ies while also
u he ing secu i y coope a ion.
Thi d, OSA is amed as a ool o enhancing
ma i ime secu i y in he egion.17 Bo h Japan and
he Philippines a e island na ions, i.e., su ounded by
wa e , and bo h ha e been in ol ed in dispu es wi h
China conce ning i s incu sions in o hei e i o ial
wa e s. The Eas and Sou h China Seas ha e eme ged
as hea e s o powe compe i ion and a e es ing
he esilience o he ules-based in e na ional o de .
In he documen s ha we examined, main aining
in e na ional ma i ime o de and de eloping he
Philippines’ ma i ime capabili ies eme ge as key
objec i es o OSA. Main aining and s eng hening
a ules-based o de is pa o Japan’s ision o he
egion,18 and he Philippines en isions he same
u u e. Fu he mo e, bo h pa ies a e opposed o
unila e al a emp s o change he s a us quo by o ce
o coe cion.
As a esul , in 2023, OSA g an aid wo h JPY 600
million was p o ided o a coas al ada sys em,
and in 2024, aid o igid-hulled in la able boa s
(RHIBs), coas al ada sys ems, and o he equipmen
o imp o e he Philippine Na y’s ma i ime domain
awa eness capabili ies was announced. Bo h sides also
exp essed hei commi men o eedom o na iga ion
and o e ligh consis en wi h he Uni ed Na ions
Con en ion on he Law o he Sea (UNCLOS).
Japan exp essed suppo o he July 2016 a bi al
ibunal on he Sou h China Sea, which de e mined
ha China’s asse ion o his o ical igh s o esou ces
con lic s wi h he speci ic dis ibu ion o igh s and
The emphasis on equali y in
he aid ela ionship is pa
o a long- e m ansi ion
in Japan’s hinking: Ra he
han iewing aid as a one-
way p ocess, p oac i i y and
ecip oci y a e expec ed om
bo h sides. As demons a ed
in he ODA cha e o 2015,
i was he i s ins ance in
which he wo ds “de elopmen
coope a ion” we e used
ins ead o “assis ance.”
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ma i ime zones, as ou lined in he UNCLOS. In
his con ex , OSA can be iewed as pa o a la ge
e o o suppo in e na ional o de , as he p og am
was used o en o ce he ecipien coun y’s abili y o
p o ec i s e i o ial wa e s agains unlaw ul h ea s.
Fou h, he h ea imposed by China and he
changes in he powe balance a e implici ly used
in he o icial documen s o jus i y Japan’s u n
owa d mo e adi ional secu i y issues and i s
ecen es ablishmen o OSA. The NSS, wi hou
naming China explici ly, s a ed ha “some na ions”
a e a emp ing o e ise he in e na ional o de , wi h
such a emp s a sea highligh ing unila e al changes.
Agains his backd op, i has been said ha Japan will
s i e o c ea e a desi able secu i y en i onmen o
i sel while using i s comp ehensi e na ional powe ,
including economic and echnological capabili ies,
and a ach impo ance o coope a ion wi h like-
minded coun ies. As OSA is deli e ed in he o m
o g an aid o suppo he Philippines’ capabili ies
in a s a egically impo an domain, i can be iewed
as pa o Japan’s a emp s o manage i s secu i y
en i onmen .
Beijing’s inc easingly asse i e o eign policy and
changes in in e na ional powe balances ha e
been ci ed as key ac o s behind Japan and he
Philippines’ new s a egic app oach. In Japan’s NSS,
China is said o be he g ea es s a egic challenge
o ensu ing Japan’s peace, s abili y, and secu i y,
and he in e na ional communi y a la ge. As OSA
is pa o measu es o ein o ce he comp ehensi e
de ense a chi ec u e se ou in he NSS, OSA should
be iewed as a ool o espond o s a egic h ea s
aced by Japan and he Philippines.
The Philippines’ s ance owa d China has
become pa icula ly asse i e du ing he Ma cos
adminis a ion in he 2020s, and he pe iod has
been ma ked by heigh ened con on a ions in he
Sou h China Sea, as well as he Philippines’ exi om
he Bel and Road Ini ia i e (BRI). Simila ly, he
Japanese go e nmen has aken a ha de line owa d
China in he 2000s amid accele a ing e en s, such
as epea ed Chinese incu sions in o he Senkaku
Islands. This s ance was e lec ed in Abe’s o eign
policy, which iewed China’s mili a y ascension as
a signi ican secu i y h ea and adjus ed Japan’s
secu i y s a egy o i he changing geopoli ical
en i onmen . Meanwhile, since he 2010s, ASEAN
coun ies inc easingly ha e u ned o he Uni ed
S a es and Japan o suppo agains China’s e i o ial
claims o e he Sou h China Sea. Acco ding o he
2025 S a e o Sou heas Asia Repo , issued by he
well-known ISEAS-Yuso Ishak Ins i u e, Japan
emains he mos us ed majo powe in he egion,
and he Philippines’ suppo o Japan was 42.7 pe
cen when inqui ed abou a p e e ed and us ed
hi d pa y o hedge agains he U.S.-China s a egic
i al y’s unce ain ies.19
In conclusion, Japan’s aid ini ia i e has been
u ilized consis en ly o s a egic objec i es, wi h
he Philippines being one o he o emos ecipien s
o Tokyo’s assis ance since he pos wa pe iod’s
onse . The use o aid o secu i y- ela ed pu poses
saw a no able ise in he 2000s, and he OSA can
be ega ded as a esul o his e olu ion, c ea ed o
add ess mode n equi emen s ha ODA by i sel
could no mee .
Fu he mo e, Japan’s ex ended coope a ion wi h
pa ne coun ies h ough aid p ojec s such as
OSA can be iewed as a mani es a ion o i s F ee
and Open Indo-Paci ic (FOIP) concep , as well as
he mo e ecen F ee and Open In e na ional O de
(FOIO), an e ol ed e sion o FOIP in which he
scope eaches beyond he Indo-Paci ic, in eg a ing
he Global Sou h in o i s sphe e o in luence.20 By
applying hese s a egies, Japan has been able o ake
The h ea imposed by
China and he changes
in he powe balance a e
implici ly used in he o icial
documen s o jus i y Japan’s
u n owa d mo e adi ional
secu i y issues and i s ecen
es ablishmen o OSA.
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on a mo e p oac i e ole in he global a ena, aking he
ini ia i e in os e ing o de and expanding i s secu i y
s a egy beyond he U.S. secu i y umb ella. While
Tokyo s ill iews i s pa ne ship wi h Washing on as
he ounda ion o i s secu i y s a egy, collabo a ion
wi h like-minded coun ies such as he Philippines
and c ea ion o new coope a i e amewo ks
demons a e Japan’s in en ion o enhance i s ole as a
mo e p ominen in e na ional ac o . This e olu ion
has been in p og ess since he Cold Wa ended and
g adually de eloped h oughou he 21s cen u y.
Many ques ions abou he aid p og am’s di ec ion
emain unanswe ed. Japan is es ing he limi s o i s
ole as a secu i y ac o and how a i can expand
i s new aid p og am, bu no ably, OSA has budge
limi s, which could a ec how much eally can be
implemen ed ul ima ely. Mo eo e , much o OSA’s
u u e de elopmen depends on he in e na ional
communi y and ecipien coun ies’ eac ions.
While OSA i s in o Japan’s es ablished o eign and
secu i y policy amewo k, he aid p og am’s u u e
also depends on de elopmen o he egion’s secu i y
si ua ion and he esponses and adjus men s equi ed
om Japan and he Philippines.21 As he u u e
commi men om he U.S. o i s allies in Asia seems
inc easingly unce ain du ing he cu en T ump
adminis a ion, OSA may se e as a ool o mi iga e
conce ns ega ding po en ial U.S. abandonmen
by enhancing egional playe s’ secu i y capabili ies
wi hou depending on Ame ican secu i y suppo .
I has ye o be de e mined wha kind o ela ionship
and collabo a ion Japan in ends o o ge wi h
OSA bene icia ies in he long e m, whe he new
coope a i e amewo ks will eme ge alongside OSA,
and wha ype o legi imacy na a i e Japan will
employ o a ionalize i s u u e endea o s. Du ing
he 2024-2025 cycle, he scope o OSA aid has been
expanding beyond i s ini ial emphasis on Sou heas
Asia o include coun ies such as Mongolia and
Djibou i, indica ing ha Japan is pe sis en ly
de eloping s a egic ins umen s o egions ha
a e bo h ulne able o Chinese in luence, as well as
c ucial o Tokyo’s diploma ic and economic secu i y.
Au ho s –
Pihla Kukkonen ecen ly comple ed he s udy in he Mas e ’s
p og am in A ea and Cul u al S udies a he Uni e si y o
Helsinki.
Julie Yu-Wen Chen is P o esso o Chinese S udies and Asian
s udies coo dina o a he Uni e si y o Helsinki. She can be
eached a [email p o ec ed]
Acknowledgmen s:
This wo k has ecei ed unding om he Eu opean Union’s
Ho izon Eu ope coo dina ion and suppo ac ion 101079069
— EUVIP — HORIZON-WIDERA-2021-ACCESS-03.
Disclaime :
Funded by he Eu opean Union. Views and opinions
exp essed a e howe e hose o he au ho (s) only and do
no necessa ily e lec hose o he Eu opean Union o he
Eu opean Resea ch Execu i e Agency (REA). Nei he he
Eu opean Union no he g an ing au ho i y can be held
esponsible o hem.
Abou ISDP
The Ins i u e o Secu i y and De elopmen Policy is a
S ockholm-based independen and non-p o i esea ch and
policy ins i u e. The Ins i u e is dedica ed o expanding
unde s anding o in e na ional a ai s, pa icula ly he
in e ela ionship be ween he issue a eas o con lic , secu i y and
de elopmen . The Ins i u e’s p ima y a eas o geog aphic ocus
a e Asia and Eu ope’s neighbo hood.
www.isdp.eu
© The Ins i u e o Secu i y and De elopmen Policy, 2025. This Policy
B ie can be eely ep oduced p o ided ha ISDP is in o med.
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Endno es
1 Minis y o Fo eign A ai s o Japan, “Implemen a ion guidelines o Japan’s o icial secu i y assis ance,” Ap il 5, 2023, h ps://
www.mo a.go.jp/ iles/100487432.pd .
2 Paul Mid o d, O e coming Isola ionism: Japan’s Leade ship in Eas Asian Secu i y Mul ila e alism (S an o d: S an o d Uni e si y
P ess, 2020).
3 Minis y o Fo eign A ai s o Japan, “Na ional secu i y s a egy,” Decembe 16, 2022, h ps://www.cas.go.jp/jp/
si you/221216anzenhoshou/nss-e.pd .
4 Minis y o Fo eign A ai s o Japan, “Japan-Philippines Join S a emen ,” Feb ua y 9, 2023, h ps://www.mo a.go.jp/
iles/100457513.pd .
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