Tokyo is quietly rewriting the rules of its external engagement. In 2023, Japan launched the Official Security Assistance (OSA), a bold new initiative aimed at supporting the defence capacities of like-minded partners across the Indo-Pacific. Unlike past frameworks centered on development alone, OSA marks Japan’s entry into the domain of security assistance, albeit within the boundaries of its pacifist constitution. As maritime tensions rise and regional power balances tilt, OSA represents a strategic recalibration: a blend of normative caution and realpolitik, designed to strengthen regional deterrence while preserving Japan’s commitment to peace..
This article unpacks the geopolitical rationale, partner selection, and broader strategic implications of Japan’s OSA—offering insights into how Tokyo is leveraging non-lethal security assistance to safeguard the rules-based order and redefine its role in a rapidly changing Indo-Pacific.
Japan: A major player in infrastructure development and investment
Japan’s economic initiatives and aids in the Asia-Pacific region were a part of the projection of its pacifist foreign policy which was pursued since the end of the Second World War. It was not until the 1980s that Japan became a major development partner in its neighbours. The economic initiatives facilitated through the Asian Development Bank (in which Japan is one of the founding members and the largest stakeholder of ADB at 15.6%) majorly focused on infrastructure development, disaster resilience, healthcare, people-to-people exchange, education and technical training and climate related issues. As of December 2024, Japan has provided $21.6 million in capital subscription to ADB.
Japan has been involved in providing economic and developmental assistance to other states through its Partnership for Quality Infrastructure Initiative (PQI, 2015) and Official Development Assistance (ODA). Along with this, in 2016 Japan had also announced the Expanded Partnership for Quality Infrastructure (EPQI) and the High-Quality Infrastructure Export Expansion Initiative. These initiatives were designed as a way to aid social and economic development of partner countries.
In addition, these initiatives were launched by Japan at a time when China was expanding its overseas presence through its Belt and Road Initiative (BRI) and the Asian Infrastructure Investment Bank (AIIB). These not only added a competitive dimension to the region’s infrastructure investment initiatives but also acted as a mechanism to operationalize the economic dimension of Japan’s Free and Open Indo-Pacific (FOIP). However, given their narrow focus on the economic investment and engagement of these initiatives, this left no space for pursuance of military engagement within the same.
Changes in security architecture in the Indo-Pacific region and the need for OSA
The changes in the geopolitical situation in the Indo-Pacific region since the 2010s with the prominent rise of China and its assertiveness in the maritime and air domains, compelled Japan to give a second thought on the continuance of its Pacifist foreign policy. The evolving security architecture in the Indo-Pacific and the continuing rivalry between the U.S and China, has induced major changes in the geopolitics of this region.
The current global world order is characterised by instability and a complex security environment. This scenario has pushed Japan to pursue its own defence capabilities as well as enhance the security and deterrence capabilities of other like-minded countries in order to prevent any unilateral attempts to change the status-quo by force, ensure the peace and stability in the region and create a security environment desirable for Japan. In 2012, Japan introduced Capacity Building Assistance to train military personnel of other countries.
In addition, North Korea’s nuclear threat (due to its active and expanding nuclear program), continuing war between Russia-Ukraine, deteriorating security situation in West Asia and Japan’s commitment to Free and Open Indo-Pacific (FOIP), have pushed Tokyo to skillfully craft its foreign policy without shedding its peace norm of the Constitution by adopting National Security Strategy (NSS) issued in 2013 and 2022 respectively. It can be assumed that Japan’s adoption of NSS 2022 introduced the new framework aimed at enhancing the defence and deterrence capabilities of like-minded countries which ultimately led to the implementation of OSA in 2023 which was a way to enhance Japan’s deterrence. Furthermore, Japan’s pursuit of OSA is a way to project its soft power and augment a deeper understanding of Japan’s FOIP philosophy.
Origin of OSA:
The Official Security Assistance (OSA) initiative was officially launched in April 2023. It will be provided in grant aid and eligible countries will be selected through comprehensive assessment of such factors such as consolidation of democracy, rule of law and respect for human rights as well as the security situation of Japan and the region. The concept of OSA first appeared in the government’s updated national security strategy in December 2022, which noted the need for “a new cooperation framework for the benefit of armed forces and other related organization…in view of strengthening their security capacities and improving their defence capabilities”. In July 2023, a Security Cooperation Division was established in the Ministry of Foreign Affairs, responsible for OSA. In addition, the OSA needs to abide by the “Three Principles on the Transfer of Defence Equipment and Technology” and the “Implementation Guidelines for Three Principles on Transfer of Defence Equipment and Technology”.
Three Principles of OSA
There are certain terms and conditions of OSA such as it can be granted for three designated purposes:
- Enduring peace, stability and security based on the rule of law,
- Conducting humanitarian activities and
- Supporting international peacekeeping efforts.
The program’s main policy objective is to secure the rules-based order in the Indo-Pacific, to enhance the partner country’s maritime awareness, surveillance and reconnaissance. Basically, the OSA caters on providing non-lethal military weapons to its like-minded partners in the Indo-Pacific.
To date, the focus of OSA has been on providing equipment for maritime surveillance in the Indo-Pacific region, alongside close coordination with other initiatives, including defence equipment transfers and capacity building support by Japan’s Defence Forces.
In the fiscal year of 2023, the budget of OSA was approximately 2 billion yen and was raised to 5 billion yen in 2024. For the fiscal year of 2025, the Foreign Ministry has requested 8 billion yen for the same programme. Japan’s Parliament has already approved and it marked a 60% year on year increase as Tokyo aims to reinforce the region’s “comprehensive security architecture”.
Partner countries of Japan’s OSA
Japan has officially completed the “Signing and Exchange of Notes for Official Security Assistance” with both the Philippines and Bangladesh on 3rd and 15th November 2023 respectively. Philippines and Malaysia were the first recipients of OSA. A coastal radar system was already delivered to the Philippines which amounted to 600 million yen. In December 2023, an OSA deal of 400 million yen was signed between Malaysia and Japan for rescue boats and supplies.
Securing peace in the Straits
Moreover, Japan and the Philippines have signed a 1.6 million yen security assistance deal in December 2024 so as to boost Southeast Asia’s maritime security and surveillance abilities amid heightened tensions in the South China Sea due to China’s disruptive maritime activities. Under this deal, Japan will provide the Philippine Navy with equipment such as rigid-hulled inflatable boats and coastal radar systems under the OSA to enhance its maritime domain awareness.
The prominent feature of all these deals is that these equipment were provided as a mechanism to promote maritime security, enhance Japan’s security cooperation, access and presence in the region. One key element which is observed behind the selection of these countries for OSA is their geo-strategic location across critical straits. Another vital point which needs to be highlighted is that since Japan adheres to the rule of law and promotes peace and stability in the Indo-Pacific region, OSA is not designed to provide lethal weapons to its partner countries which can invoke instability and conflict in the longer run.
Djibouti – A facility for Longer term
Nevertheless another partner country of OSA is Djibouti, where Japan has stationed its only Self Defence Forces’ (which conducts anti-piracy operations) overseas facility. It is a critical outpost for helping support stability in the Gulf of Aden and the Indian Ocean amid piracy threats. Both Japan and Djibouti have signed a deal for 1.1 billion yen in December 2024 for coastal radar system and related infrastructure for the Djiboutian Navy which will help in enhancing monitoring and surveillance capabilities as well as maritime domain awareness (MDA). This initiative will ensure the long-term and stable use of the Self-Defence Force’s operational facility.
Diversifying Mongolia’s Reliance
In addition, Mongolia will also be a recipient of Japan’s OSA. In 2022, both countries signed a Special Strategic Partnership for Peace and Prosperity and the plan includes the establishment of a legal framework to transfer defence equipment. Mongolia has been a beneficiary of Japan’s ODA ever since they elevated their relation to Strategic Partnership in 2010. One of the aims of Tokyo is to help in assisting Ulaanbaatar to diversify its diplomatic relations beyond Moscow and Beijing.
Furthermore, based on the new budget allocation for OSA, Japan has newly added Sri Lanka, Thailand, Tonga, East Timor and Papua New Guinea. Given the pace at which Japan is enhancing its budget allocation and partner countries, it can be alleged that Tokyo is seriously pursuing OSA to further its FOIP. Moreover, the continuation of this initiative will not only aid in building defence capability of partner countries but also help in garnering trust for Japan’s OSA; thereby facilitating the fulfilment of mutual interests.
