Published by
Climate Integrate
April 2024

Offshore Wind in Japan

Policy Agenda and Prospects

日本の洋上風力導入拡大に向けた政策課題と展望

Contents

Offshore Wind in Japan: Policy Agenda and Prospects
Summary
Ⅰ.

Ⅱ.

III.

Ⅳ.

Ⅴ.

03

Offshore Wind Power– Why is it Important for Decarbonization in Japan?

05

01 Offshore wind power05

02 Why Japan needs offshore wind06

Offshore Wind Capacity

09

01 Global capacity

09

02 Capacity in Japan12

Offshore Wind Policies in Japan

13

01 Schemes to promote renewables

13

02 Policies to promote offshore wind13

Measures and Challenges for Offshore Wind Expansion

18

01 Developing the supply chain

18

02 Building consensus with residents and fishing communities

25

Policy Proposals for Offshore Wind Expansion

27

In Closing29

Box 1. A power generation scenario for Japan: 43 GW offshore
wind by 2035

7

Box 2. Economic ripple effects

20

Box 3. Roadmaps abroad24

Box 4. Case study: Working with the fishing community
in Choshi City

26

・Electricity measurements used in this report 
1 megawatt (MW) ＝ 1,000 kilowatts (kW) 
1 gigawatt (GW) ＝ 1,000 MW・Exchange rates 

1 USD = 150 yen, 1 GBP = 190 yen

Japan’s fiscal year starts April 1 and runs through March 31 the following year.
This report was compiled based on information accessible at the end of March 2024.
The websites mentioned in this report were last accessed on March 29, 2024.

2

Offshore Wind in Japan: Policy Agenda and Prospects

Summary
There are growing expectations for offshore wind power generation globally as a source ofclean energy. Japan has significant potential for offshore wind, which can play an importantrole in tackling climate change, providing a stable energy source, and developing an industry.
A public and private sector council on offshore wind in 2020 set an offshore wind target of

up to 45 gigawatts (GW) by 2040. The Japanese government has been updating policies andintroducing new initiatives to expand offshore wind.

However, the installed capacity in Japan is still small compared with that of China and some
European countries that are actively promoting offshore wind. Following the constructionof pilots and small-scale power projects, the first commercial-scale offshore wind farms inJapan began operating in December 2022 at Noshiro Port in Akita Prefecture. Offshore winddevelopment in the country has just begun in earnest.

“Bottom-fixed” offshore wind turbines have been the most common type installed. Meanwhile,
the Japanese government plans to expand the deployment of “floating” turbines, more suited
to Japan’s coastlines, which are characterized by water depths that increase rapidly with

distance from shore. It plans to set installation targets and industrial strategies for floating
offshore wind. The government is also working on legislation to expand areas for offshore
wind development from ports and within territorial waters to Japan’s exclusive economic

zone (EEZ). Some companies are entering various sectors of the offshore wind industry, suchas the manufacturing of components and construction of specialized vessels to serve offshore
wind projects.

While Japan is making progress in offshore wind deployment, challenges also exist. To help

accelerate this progress, it is crucial to implement the following steps for the deployment ofoffshore wind power generation. 

Create a national grand design for offshore wind, with clear and ambitious
targets

The government needs to create a grand design that provides an overall picture of how Japanplans to promote offshore wind, as well as medium- and long-term installation targets that are
far more ambitious than those previously set. The targets should indicate how much wind will
be operational, and by when, for fixed-bottom and floating technologies. 

Offshore Wind in Japan: Policy Agenda and Prospects

3

Envision the full scope of an offshore wind supply chain, and create a roadmap
The government should calculate the future demand for components, vessels, and workers,

plot out the locations of wind farms, and consider what work is necessary for the developmentof port facilities in order for offshore wind to become a major industry and to be deployedon a large scale. Based on such calculations, the government could create a roadmap for thedevelopment of the supply chain for the offshore wind industry. Included in the roadmap

should also be consideration of how to expand the share of components and equipment madein Japan, as well as an export industry in 2030 and beyond. 

Clarify policies on maritime use in Japan’s exclusive economic zone (EEZ)

Areas available for offshore wind development will increase dramatically once projects within
Japan’s EEZ  are enabled by legislation. This would also mean an increase in the numberof fisheries communities and stakeholders that wind project proponents would need tonegotiate with. Marine spatial planning should be used to help identify stakeholders in atransparent manner and find efficient ways to use marine areas. Promote consensus-building with local communities

Offshore wind development is a large-scale endeavor that can have massive impacts

on local communities. While offshore wind can stimulate the economy and create jobs,
communities may have concerns or even oppose development. It is crucial to addressenvironmental concerns and gain support from residents. It is also important to havediscussions and build consensus through dialogue with local residents including

fishermen with the participation of the Fishery Agency in the Public-Private Council andother statutory councils that are attended by the Ministry of the Economy, Trade andIndustry and the Ministry of Land, Infrastructure, Transport and Tourism.

Choshi Offshore Wind Power Plant（Choshi, Chiba)

4Offshore Wind in Japan: Policy Agenda and Prospects

Ⅰ. Offshore Wind PowerWhy is it Important for Decarbonization in Japan?

This section summarizes the types of offshore wind and the reasons why offshore wind isimportant for Japan’s decarbonization.     

01Offshore wind power
Offshore wind power refers to wind turbines for electricity generation that are built off thecoast, in contrast to being built onshore such as in coastal and mountain areas. There are

two types of offshore wind power generation (Figure 1): one with turbines fixed to the seabed( “fixed-bottom” offshore wind) and the other installed on floating foundations ( “floating”
offshore wind).

Most offshore wind projects in Japan, either in operation or under planning, have been fixed-

bottom, since the country’s first offshore wind power station started running in Setana Town,
Hokkaido in 2004.1 But there is great potential for and growing interest in floating offshore

wind in countries like Japan and the U.S. that have few shallow-water sites suitable for fixed-

bottom offshore wind.2 Countries are vying to be leaders in floating offshore wind technology
and this provides an opportunity for Japan to become a global leader.

Fig. 01

Types of offshore wind
Fixed-bottom
Gravitybase

Monopile

Floating
Barge

Jacket30m

TLP

Semi-sub

Spar

50m
100 m

Prepared by Climate Integrate based on MLIT material

3

1

Setana Town, Hokkaido website (in Japanese)3 Ministry of Land, Infrastructure, Transport and Tourism (MLIT) “Taskforce on base port development -  2

IRENA “Floating Foundations: A Game Change for Offshore Wind Power” 2016.12

locations and sizes” February 17, 2022 (p.5) (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

5

02

Why Japan needs offshore wind
Deployment of offshore wind could play a crucial role for Japan in tackling climate change,
ensuring a stable supply of energy, and developing the nation’s industry. 

Tackling climate change

The COP 28 UN Climate Conference, held in late 2023, agreed to transition away from fossil
fuels and triple renewable energy capacity by 2030 in order to limit warming to 1.5° C.4

The power generation sector is Japan’s largest source of greenhouse gas emissions. Thermal
power (fossil fuel combustion) accounted for 72.7% of the country’s power generation in
FY2022,5 and the country has long relied on imports for most of the fossil fuels used. The

government introduced a feed-in tariff (FIT) program in 2012 to expand the use of renewableelectricity, but the share of renewables in power generation remains at 21.7% (as of FY2022).6
The government aims to increase the share of renewables to 36–38% by 2030.7 This target

does not appear ambitious as the share of renewables in the global electricity mix is alreadyaround 30% today and projected to be near 50% by 2030.8 Still, it may be difficult for Japan toachieve the 36–38% share given that construction of commercial-scale solar projects has beenslowing 9 and that it usually takes about eight years to develop a large-scale wind farm.10 It is

hoped that deployment of types of solar and wind that can be quickly installed through 2030
will accelerate, to be followed by a massive ramp-up of offshore wind.

Ensuring a stable energy supply

Advantages of wind power generation include a reduced reliance on imported fuels and apotential contribution to Japan’s  energy security. Furthermore, offshore wind is expected tosee costs drop significantly and therefore become increasingly economically viable. According
to a “Clean Energy Scenario” by Lawrence Berkeley National Laboratory (U.S.), offshore wind
could play a significant role in Japan (Box 1). Larger wind turbines can be installed offshore

4United Nations Framework Convention on Climate Change (UNFCCC) “COP28 Agreement Signals ‘Beginning5

Ministry of Economy, Trade and Industry (METI) “FY2022 energy demand and supply (preliminary figures)”

6
7
8
9
10

6

of the End’ of the Fossil Fuel Era” December 13, 2023
November 29, 2023 (in Japanese)

METI “FY2022 energy demand and supply (preliminary figures)” November 29, 2023 (in Japanese)
METI “Outline of Strategic Energy Plan” October 2021

International Energy Agency (IEA) “World Energy Outlook 2023” October 2023

Japan Photovoltaic Energy Association “Solar power generation today and challenges” October 27, 2023

（p.22) (in Japanese)

METI “Reference material” March 8, 2021 (p.4) (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

than onshore, and this could contribute to increasing the amount of power generated,

reducing Japan’s reliance on fossil fuels and contributing to an economically rational energy
transition.

Box 1: A power generation scenario for Japan: 43 GW of offshore
wind by 2035
In a February 2023 study by Lawrence Berkeley National Laboratory (U.S.) on the

decarbonization of Japan’s power sector,11 a Clean Energy Scenario is achievable

by 2035, with a shift to 90% clean energy. The key is to scale up renewables quickly
while costs drop significantly. The scenario shows that it is feasible to increase

the share of renewables to 70% (including 43 GW of offshore wind, consisting offloating 19 GW and fixed-bottom 24 GW) by 2035 while reducing electricity costs

and ensuring a stable supply of electricity. Climate Integrate also published a set ofrecommendations that are key to realizing the scenario.12

11
12

Lawrence Berkeley National Laboratory (LBNL) “The 2035 Japan Report” February 2023
Climate Integrate “Policy Change to Trigger a Shift” March 1, 2023

Offshore Wind in Japan: Policy Agenda and Prospects

7

Developing an industry

Surrounded by oceans, Japan has massive possible deployment at about 552 GW of offshore

wind potential,13 the equivalent of about 550 nuclear reactors by some estimates. Japan also
has the potential to develop a globally competitive industry, while other countries as wellsignal their intentions to deploy more offshore wind. Furthermore, the offshore wind industry
is not limited to the manufacture of wind turbines and components. It has a wider reachto other business sectors such as developing port infrastructure as well as building vessels
for the construction of wind farms and the transfer of equipment and crew. This creates

opportunities to develop businesses and create jobs not only in host communities of offshore
wind farms but also in other parts of Japan.


According to 2019 estimates by the Japan Wind Power Association,14 an industry group, theinstallation of 10 GW of offshore wind capacity by 2030 could be worth 5–6 trillion yen in direct
investment, 80,000–90,000 jobs, and 13–15 trillion yen in economic ripple effects (Box 2).

Ishikari Bay New Port Offshore Wind Farm

813

Japan Wind Power Association (JWPA) “Toward mainstreaming offshore wind” July 17, 2020 (p.14) (in14

JWPA “Proposals to make wind a main power source” May 30, 2019 (p.4) (in Japanese)

Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

Ⅱ. O ffshore Wind Capacity
This section summarizes the development of offshore wind and installed capacity.

01

Global capacity
Vindeby, the world’s first offshore wind station (5 megawatts (MW)), started operating off

the coast of Denmark in 1991.15 Orsted, a Danish major offshore wind developer, and otherssummarize the global development of offshore wind as follows.

Fig. 02

Offshore wind development
1991
2001

2002
2011

2012
2017

2018
Present

Compiled by Climate Integrate based on Orsted and BVG Associates materials
16

15
16
17

17

Orsted “Making green energy affordable”

Orsted “Making green energy affordable – How the offshore wind energy industry matured – and what we
can learn from it”

BVG Associates “UK offshore wind history”
Offshore Wind in Japan: Policy Agenda and Prospects

9European countries led offshore wind development for many years. A change came in 2021
when China became the largest market in total installed capacity as developers rushed tocomplete projects before the expiration of the Chinese feed-in tariff program at the end of thatyear. China’s addition of 12.7 GW in 2021 alone surpassed the total installed capacity of 12.3
GW (2021) in the UK.18

As of the end of 2022, China remained the largest market, followed by the UK and Germany,
while Taiwan and Japan were ranked 9th and 10th, respectively.19 A total 9.4 GW of offshore

wind was added worldwide that year, bringing the global cumulative installed capacity to 57.6
GW.20

Fig. 03

Cumulative offshore wind installations, WFO
MW
30000

Added in ����Added in ���� and earlier

26563

25000
20000

13601

15000
10000

8043

71

h

42

d

an

nl

ed
e

Sw

Ja

112

SA

191

U

225

So

ut

an
y
he
rla
nd
D
en s
m
ar
Be k
lg
iu
m
Fr
an
ce
Vi
et
na
m
Ta
iw
an

m

N
et

G

er

Ch
i

237

pa
n

482 396

U
K

na

0

Fi

3010 2343 2263

n
Ko
re
a

5000

Prepared by Climate Integrate based on WFO document 
21Countries have been announcing ambitious offshore wind targets in recent years (Appendix 1– Global offshore wind targets/ambitions/potential, and policies). In April 2023, nine North Sea
nations announced the Ostend Declaration,22 to increase the offshore wind power generation

18

World Forum Offshore Wind (WFO) “Global Offshore Wind Report 2021” February 2022

20

WFO “Global Offshore Wind Report 2022” February 2023

19
21
22

10

WFO “Global Offshore Wind Report 2022” February 2023
WFO “Global Offshore Wind Report 2022” February 2023

Alexander De Croo (Prime Minister of Belgium) “Ostend Declaration on the North Seas as Europe’s GreenPower Plant” April 24, 2023

Offshore Wind in Japan: Policy Agenda and Prospects

capacity in the North Sea to 120 GW by 2030, and 300 GW by 2050. Meanwhile, the U.S.23

and the UK 24 have set their respective targets specifically for floating offshore wind power,
signaling their ambitions to become leaders in the emerging technology. The Global Wind

Energy Council (GWEC), an international trade organization for wind power, estimates thatannual installations of offshore wind will steadily increase and yearly additions will reach 54
GW by 2030 from 15.5 GW in 2023.25 However, that is below the levels presented in 2021 in a

scenario by the International Energy Agency (IEA) to achieve net zero emissions in the power
sector by 2050 in which offshore wind deployment needs to accelerate globally at the rate of
80 GW/year through 2030, and 70 GW/year through 2050.26

Fig. 04

New offshore wind installations, GWEC
MW
70000
60000
50000

Other
North America
Asia Paciﬁc ex China
China
Europe

40000

R
C AG

30000

40755
30828

%
+� �

54245

59220 60200

45500

33564

25746

15450 17430

20000
10000

�%
* +�

C

R*
AG

8771

0

2022

2023e 2024e 2025e 2026e 2027e 2028e 2029e 2030e 2031e 2032e* Compound Annual Growth Rate

23
24
25
26
27

Prepared by Climate Integrate based on GWEC materials

27

The White House “FACT SHEET: Biden-Harris Administration Announces New Actions to Expand U.S.

Offshore Wind Energy” September 15, 2022

Gov.UK “British energy security strategy” April 7, 2022 (set as “ambition” )Global Wind Energy Council (GWEC) “Global Offshore Wind Report 2023” August 28, 2023 (p.91)
IEA “Net Zero By 2050” October 2021 (p.74)

GWEC “Global Offshore Wind Report 2023” August 28, 2023 (p.91)
Offshore Wind in Japan: Policy Agenda and Prospects

11

02

Capacity in Japan
Offshore wind development in Japan has just begun in earnest. Following the introductionof feed-in tariffs in July 2012, a scheme intended to boost renewable energy, solar power led
Japan’s renewable deployment. Wind was slow to expand, partly due to new requirements
for environmental impact assessments (EIA), and challenges regarding grid connections.

Most wind projects up to now have been built onshore (about 5 GW as of December 2023 incumulative capacity) 28 with offshore wind totaling just 298 MW (as of January 2024). (Appendix
2 – Domestic offshore wind farms)

In recent years, however, there have been increasing expectations for wind power, especiallyoffshore wind, to produce clean energy. In 2020, a public-private council was set up to

discuss how to strengthen the industrial competitiveness for offshore wind and set targetsof 30–45 GW by 2040. 29 The government has been implementing major policy changes andnew schemes. Japan’s offshore wind development, which started near shore, is eyeing areas
further away from the coast for large-scale deployment.

Ishikari Bay New Port Offshore Wind Farm

1228

Calculated by Climate Integrate based on JWPA “Japan’s cumulative wind capacity as of December 2023”

29

Public-Private Council on Enhancement of Industrial Competitiveness for Offshore Wind Power Generation

February 2, 2024 (in Japanese)（Public-Private Council) “Vision for Offshore Wind Power Industry (1st)” December 15, 2020

Offshore Wind in Japan: Policy Agenda and Prospects

Ⅲ . O ffshore Wind Policies

in JapanThis section provides a timeline of offshore wind policy development in Japan.

01

Schemes to promote renewables
  Feed-in tariff program and environmental impact assessments

Following the Fukushima nuclear accident triggered by the earthquake that struck easternJapan in March 2011, the government introduced the feed-in tariff (FIT) program in July

2012, to incentivize producers of renewable electricity (solar, onshore and offshore wind,geothermal, biomass, small hydro) and diversify Japan’s power sources. However, thedevelopment of wind power in Japan was slow,  partly due to new regulations requiring

environmental impact assessments (EIA) for wind power projects of 10 MW or larger.30 The

EIA requirement was put in place three months after the FIT program began, adding years toproject completion timelines.31 Responding to industry requests, the government eased therestrictions in October 2021 by raising the threshold to 50 MW.32

02

Policies to promote offshore wind
Approvals for development in port areas

The Port and Harbor Act were amended in July 2016 so that developers could buildand operate wind farms in port areas for up to 20 years. 33 Wind projects near ports haveadvantages such as the proximity to the grid, as well as access to piers and wharves to transfer
equipment.34 Japan’s first large-scale commercial offshore wind farms became operational
within the port areas of Noshiro (84 MW) and Akita (55 MW), both in Akita prefecture, in
December 2022 and January 2023,   respectively.

30
31
32
33
34

Ministry of the Environment (MOE) Environmental Impact Assessment Network (in Japanese)M OE “Size of wind farms subject to environmental impact assessments” January 21, 2021 (p.6) (inJapanese)

MOE Press release October 1, 2021 (in Japanese)
MLIT Press release July 1, 2016 (in Japanese)

MLIT “Draft legislation - Port and Harbor Act” (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

13

Designation of promotion zones

In April 2019, the Act on Promoting the Utilization of Sea Areas for the Development ofMarine Renewable Energy Power Generation Facilities took effect.35 Under the Act, theMinistry of Economy, Trade and Industry (METI) and the Ministry of Land, Infrastructure andTransportation (MLIT) can designate “promotion zones” for offshore wind projects within

Japan’s territorial waters (12 nautical miles, or 22 km, from shore, excluding port areas). The
ministries can also hold tenders to build and operate wind farms in the areas for up to 30
years.36 As of October 2023, there were 10 such promotion zones around Japan.

The ministries can also designate two types of precursor zones that later can be upgraded to“promotion zones” with government approval, and as of October 2023, these amounted tonine “prospective zones” and eight “potentially suitable zones” across Japan.

Fig. 05

Offshore wind zones as of Oct. 2023, METI
Promotion Zones

� Goto, Nagasaki (ﬂoating)� Noshiro/Mitane/Oga, Akita� Yurihonjo, Akita� Choshi, Chiba
� Happo/Noshiro, Akita� Oga/Katagami/Akita, Akita
� Murakami/Tainai, Niigata
� Saikai (Enoshima), Nagasaki
� Sea of Japan (south side),
Aomori�� Yuza, Yamagata

Potentially Suitable Zones

Prospective Zones

�� Ishikari, Hokkaido
�� Ganwu/Minami Shiribeshi,
Hokkaido
�� Shimamaki, Hokkaido
�� Hiyama, Hokkaido
�� Matsumae, Hokkaido
�� Sea of Japan (northside), Aomori
�� Sakata, Yamagata
�� Kujukuri, Chiba
�� Isumi, Chiba

�� Ganwu/Minami Shiribeshi,
Hokkaido (ﬂoating)�� Shimamaki, Hokkaido(ﬂoating)�� Mutsu, Aomori
�� Kuji, Iwate (ﬂoating)�� Eastern side, Toyama(ﬁxed-bottom, ﬂoating)�� Awara, Fukui
�� Hibikinada, Fukuoka
�� Karatsu, Saga

Prepared by Climate Integrate based on METI website

37

Designation of base ports

With amendments to the Port and Harbor Act in February 2020, the transport minister can

35
36
37

14

METI, MLIT “Offshore wind policies” February 2022 (p.2) (in Japanese)Prime Minister’s Office “Act on Promoting the Utilization of Sea Areas for the Development of Marine

Renewable Energy Power Generation Facilities” December 13, 2018 (in Japanese)
METI website (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

designate “base ports” so that space can be leased at wharves for wind turbine projects andrelated maintenance work.38 The amendments also extended space leasing for wind power

producers in port areas to 30 years, up from 20 years.39 

Public-Private Council targets 10 GW offshore wind by 2030 and 30–45
GW by 2040
In December 2020, a council comprised of government officials and representatives from theoffshore wind sector (referred to as the “Public-Private Councilc), compiled a set of strategies

in a document titled “Vision for Offshore Wind Power Industry (1st edition),” to strengthen theindustry in Japan. It announced offshore wind targets of 10 GW by 2030 and 30–45 GW by 2040.40

The announcement gave a big boost to the country’s offshore wind development prospects. It

should be noted, however, that the targets refer to projects that could be at various stages after
government approval, so it cannot be assumed that all of the capacity implied in these targets

will be operational by then.41 Japan’s Sixth Strategic Energy Plan, approved by Cabinet in October
2021, foresees only 5.7 GW of offshore wind to be operational by FY2030,42 and it is unclear how

much offshore wind will be operational by 2030 and 2040.

Expansion into exclusive economic zone (EEZ)

Offshore wind developments in Japan initially started in areas near the coastline. Early

projects in Ibaraki Prefecture had turbines installed within several meters of the shore.43 As

of April 2024, developers are allowed to build wind farms within Japan’s territorial waters(up to 12 nautical miles, or about 22 km), and the government is considering how to allow

developments within the country’s EEZ which extends up to 200 nautical miles (about 370 km)
from the coastal baseline.

Japan’s fourth Basic Plan on Ocean Policy, approved by Cabinet in April 2023, stated that the

government would prepare the regulatory framework to allow offshore wind development inJapan’s EEZ.44 In March 2024, Cabinet approved the related legislation.45 Expansion into theEEZ means a dramatic increase in marine area available for offshore wind development. Given
that Japan is surrounded by deep waters due to its steep gradients offshore, wind projects inJapan’s EEZ will use floating turbines that can be installed in water depths of 50 meters or

38

MLIT “Summary of offshore wind base port systems” (in Japanese)40

Public-Private Council “Vision for Offshore Wind Power Industry (1st)” December 15, 2020

39
41
42
43
44
45

House of Councilors Legislation information December 6, 2019 (in Japanese)
METI, MLIT “Toward EEZ expansions” November 15, 2023 (p.4) (in Japanese)

METI “Energy demand and supply outlook for FY2030” October 2021 (p.30) (in Japanese)Wind Power “Wind Farm Projects” (in Japanese)

Cabinet Office “The Fourth Basic Plan on Ocean Policy” April 28, 2023 (in Japanese)
METI News release March 12, 2024 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

15

Targets and potential for
Japan’s offshore wind industry (GW)

Chart.01

2030

2035

2040

2050

Potential
46

47

48

Compiled by Climate Integrate

more,49 rather than fixed-bottom turbines.50
In June 2023, METI and MLIT launched a new taskforce comprised of academics and power
producers to discuss industry strategies for floating offshore.51 Following the taskforce

discussions, the Public-Private Council was to release the second edition of its “Vision for

Offshore Wind Power Industry” by the end of FY2023,52 but no announcement has yet been
made as of March, 2024.

Centralized model

The government is developing a framework for a “centralized” model for the efficient

deployment of offshore wind power with the national and local governments playing central

roles. In November 2023, METI and MLIT presented draft guidelines on how to implement thecentralized model. Roles to be played by the national and local governments are as follows :53
46

MOE “Guide for Renewable Energy Potential System” March 2024 (p.36, 58) (in Japanese)

48

JWPA “Toward mainstreaming offshore wind” July 17, 2020 (p.14) (in Japanese)

47
49
50
51
52
53

16

JWPA “JWPA Japan Wind Vision 2023” May 2023 (p.3)

N ew Energy and Industrial Technology Development Organization(NEDO) “Floating offshore windtechnology guidebook” March 2018 (p.14) (in Japanese)Public-Private Council, NEDO “Technology development roadmap for competitive offshore wind industry”

April 1, 2021 (in Japanese)

METI News release June 23, 2023 (in Japanese)

Cabinet Secretariat ministerial meeting on renewables and hydrogen “Inter-ministry action plans forrenewable energy expansions” April 4, 2023 (p.2) (in Japanese)

METI, MLIT “Draft guidelines for the centralized system for offshore wind” November 15, 2023 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

1. Designating development areas, holding tenders to select project developers
2. Coordinating affairs with local communities

3. Conducting site surveys (wind conditions, seabed geology, weather, marine
conditions)4. Securing grid access

5. Conducting environmental impact assessments (EIA)In March 2024, MOE’s Central Environment Council (advisory body) provided its

recommendations regarding EIAs to the environment minister. One recommendation

regarding projects within Japan’s territorial waters was to eliminate the requirement for

project proponents to submit a “primary environment impact consideration document”

and “scoping document” (normally required for an EIA), if the site is in a promotion zone

designated by METI and MLIT based on a site survey conducted by MOE. For projects within
Japan’s EEZ, one recommendation was for MOE to conduct studies based on literature andenvironmental data at an early stage before an area is designated as a candidate site. If METI
designates an area as a candidate site based on those studies, the project proponent could

avoid the need to submit a “primary environmental impact consideration document.” 54 Goingforward, it is anticipated that MOE will take action based on the Council’s recommendations.

54

MOE “Central Environment Council recommendations for EIA for wind projects (1st version)” March 7, 2024

(in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

17

Ⅳ. M
 easures and Challenges for
Offshore Wind Expansion
This section examines measures that could be taken and challenges that need to be addressed
to expand offshore wind power generation in Japan. Special attention is given to the current

status of measures to develop domestic supply chains and build consensus with residents andfishing communities.

01

Developing the supply chain
Outlook for strong market development

The supply chain for offshore wind has massive potential in both scope and scale and could
have significant ripple effects on industries in Japan. The above-mentioned Public-Private
Council’s offshore wind targets (10 GW by 2030 and 30–45 GW by 2040) were set based on

industry calculations that at least 1 GW of offshore wind capacity needs to be built every year
until 2030, then 2–4 GW annually up to 2040, for investment payback and for the industry
to be globally competitive.55 That represents a significant increase from Japan’s averageannual new wind capacity to date of roughly 220 MW (mostly onshore) since the FIT program
was introduced.56 Achieving these targets would clearly require a massive build-out of thedomestic supply chain. The importance of developing the supply chain will increase as Japanaims to expand the deployment of floating offshore wind.

Figure 6 depicts China’s projected dominance in the Asia Pacific region in the coming years,
but it also indicates that Taiwan, South Korea, and Vietnam are forecast to expand offshore
wind installations, with Australia expected to join the fray in 2031. This means massive

demand for related equipment, competition for resources and workforces, and the need for arobust supply chain to support deployment in the whole region. Japanese power producers
will face competition from these countries and need to secure equipment and vessels toensure the steady expansion of offshore wind within the country. As offshore wind supply
chains grow in the Asia-Pacific region, an early entry into the global market could help
Japanese companies secure larger market shares.

55
56

18

JWPA “Toward mainstreaming offshore wind” July 17, 2020 (p.16) (in Japanese)Climate Integrate calculated average annual installation based on JWPA “Preliminary figures on Japan’s

wind power generation (as of December 2023)” February 2, 2024 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

Growth projections for offshore windin the Asia-Pacific region, GWEC

Fig. 06

MW
25000
20000

VietnamJapan
South Korea
Taiwan
China

CAGR

15000

Rest of Asia
Australia
India

+��%

18256
16884 17695

CAGR

+�%

20030 20535

13559

21995

24000

23100

1000

600 1500
600 1000
1000
1000
1000

1000
1395
1500
1500

1500
1000
1500
1500

1500
1000
1500
1500

15000

15000

15000

9769

10000

6311
5000
0

2022

2023e 2024e 2025e 2026e 2027e 2028e 2029e 2030e 2031e 2032e* Compound Annual Growth Rate

Prepared by Climate Integrate based on GWEC

57

materials

Supply chain development

The offshore wind supply chain includes components (blades, nacelles, towers, cables,

foundations, etc.), and vessels (specialized for installation, cable laying, transport, etc.). Portsalso need to be upgraded or built to accommodate large-sized equipment. Certain challengesof developing a supply chain need to be addressed in Japan, where offshore wind is still in its
infancy.

The government said in an inter-ministry action plan released in April 2023 that it will build
a robust domestic supply chain by improving productivity in the manufacture of essential
components for floating offshore wind, and other products and components, and bypromoting the widespread use of domestically-built work vessels.58

57
58

GWEC “Global Offshore Wind Report 2023” August 28, 2023 (p.99)

Cabinet Secretariat ministerial meeting on renewables and hydrogen “Inter-ministry action plans forrenewable energy expansions” April 4, 2023 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

19

Key components of offshore wind supply chain,
Cabinet Secretariat

Fig. 07R
Installation&
6.7% 7.7%
Turbines 23.8%
15.5%
D
2.9%
Foundations
Transmission

High-voltage
dynamic cable

Blade
NacelleO&M 36.2%

7.2%

Decommissioning

Cable

Generator

Floating
Foundation

Tower

Transformer
Foundation

Mooringline

Permanent
magnetGearbox・Bearing
・Tower・AnchorAnchorFoundation(ﬁxed-bottom)

Foundation(ﬂoating)

Others

Prepared by Climate Integrate based on Cabinet Secretariat materials

59

Box 2: Economic ripple effects

The Japan Wind Power Association (JWPA) estimated in 2019 that the deploymentof 10 GW in offshore wind capacity in Japan by 2030 could be worth 5–6 trillion yen
in direct investment, generate 80,000–90,000 jobs, and create 13–15 trillion yen in
economic ripple effects.60 In a more recent analysis, the industry group said that

installing 140 GW of wind capacity (40 GW of onshore and 100 GW of offshore) by 2050
could create 355,000 jobs, have an economic ripple effect of 6 trillion yen per year,
and reduce fossil fuel imports worth 2.5 trillion yen per year.61

Akita Prefecture estimated in 2022  that installations of 2 GW of offshore wind capacity
in the prefecture could create 37,600 jobs and bring economic impacts of 382 billion

yen (both direct and indirect) in construction, operation and maintenance (O&M), anddecommissioning.62

59
60
61
62

20

Cabinet Secretariat GX Promotion Office “Sectorial investment strategies 4” November 16, 2023 (p.46) (inJapanese)

JWPA “Proposals to make wind a main power source” May 30, 2019 (p.4) (in Japanese)
JWPA “JWPA Wind Vision 2023” May 29, 2023

Akita Prefecture “The 2nd Akita New Energy Industry Strategies (revised)” March 2022 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

Offshore wind in Japan could have annual economic ripple effects of 1 trillion yen by2030 and 2 trillion yen by 2050, according to estimates by METI, published in a reporton research and application plans for offshore wind cost-reduction projects, one of

the national Green Innovation Fund projects.63 METI’s estimates were made assuming

the following:

1. Offshore wind capacity in Japan: 1.68–3.68 GW by 2030, 45 GW by 2050
2. Japan’s share in other Asian markets: 25% in 2030 and 2050(a) Wind turbines and components

Japan has been importing wind turbines as major domestic turbine makers, including

Hitachi, MHI, and Japan Steel Works, have all ceased production in recent years. Domestic

manufacturers do produce other parts and components, such as generators, bearings, andpermanent magnets, and the government has acknowledged that their manufacturingpotential has been underutilized.64 Japan would face risks such as cost increases if it

continued to rely on imported wind turbines as the size of turbines continues to grow.
The nacelle is a structure that houses key components including the generator, gearbox(where used), yaw bearing, yaw system, etc. Toshiba has been building a network of suppliers
for nacelles in Japan. Since signing a strategic partnership agreement with GE Renewable

Energy in 2021 to localize key manufacturing processes in Japan for the American company’s
turbines,65 Toshiba has been lining up component suppliers near offshore wind sites such as
Chiba and Akita.

For foundations, JFE Engineering has completed the construction of the first factory in Japanto produce monopiles (a type of foundation) and transition pieces in Okayama Prefecture.66

The factory started operations in April 2024 and has the capacity to produce about 50
foundations a year.67(b) Ports

Three main types of ports are required for offshore wind development : 68

63
64
65
66
67
68

METI “R&D and application plans to reduce cost of offshore wind” October 1, 2021 (in Japanese)

Cabinet Secretariat et. al. “Green growth strategy through achieving carbon neutrality in 2050” June 18,

2021 (p.31) (in Japanese)

GE Renewable Energy, Toshiba Energy Systems & Solutions News release May 11, 2021
JFE Holdings Sustainability report  2023 “Climate Change”

JFE Engineering “Offshore wind foundations” (in Japanese)

MLIT “Taskforce on offshore wind port development (1st meeting, document 3)” May 31, 2023 (p.24) (inJapanese)

Offshore Wind in Japan: Policy Agenda and Prospects

21



•

Industrial hub ports (for work vessels, manufacturing of components and equipment)•

Operation and maintenance (O&M) ports•

Base ports

Base ports and O&M ports can have overlapping roles for installation, repair work, O&M, anddismantling. But special consideration of specifications is needed when developing ports forthe deployment of floating offshore wind turbines. They require more space and more diverse
port functions. For example, foundations for floating offshore wind usually weigh 2–10 times
heavier than for fixed-bottom turbines, and they take up more space.69

In February 2022, a taskforce convened by MLIT indicated the potential locations and numberof base ports that would be required to achieve the target of 30–45 GW by 2040 proposedby the Public-Private Council (Figure 8). The taskforce report also included specification

requirements for these ports to accommodate larger components and projects. Japan has
five base ports (Akita, Kashima, Kitakyushu, Noshiro, Niigata) designated by the Ministerof Land, Infrastructure, Transport and Tourism.70  Two more ports will be added later(Aomori, Sakata).71 The ministry reconvened the taskforce in May 2023 to expand the scopeof discussions to identify additional port specification requirements for the installation of
floating offshore wind turbines.

(c) Vessels

The types of vessels for offshore wind development and operation include:••

Wind turbine installation vessels (WTIV) (jack-up vessels, heavy lift vessels)
Crew transfer vessels (CTV) 

MLIT estimates Japan would need about 50 CTVs by 2030 and 200 by 2040 to achieve the

Public-Private Council targets, 72 while no estimates for other types of vessels have been madepublic. Shimizu Corporation announced in October 2022 the completion of the “Blue Wind”

installation vessel.73 Penta Ocean said in September 2023 that its CP-16001 installation vessel
with a 1,600-ton lifting crane was completed.74 A tally by Climate Integrate identified at least

20 offshore wind-related vessels in Japan, including those under construction.75

Given that construction of large-scale wind projects is not expected to take off until 2027 or

69
70
71
72
73
74
75

22

MLIT “Taskforce on offshore wind port development (1st meeting, document 3)” May 31, 2023 (p.34) (inJapanese)

MLIT “Summary on base port system” (in Japanese)

MLIT “Designation of base ports” April 8, 2024 (in Japanese)

MLIT “Safety design guidelines for CTVs” March 31, 2023 (in Japanese)
Shimizu News release October 6, 2022

Penta Ocean News release September 27, 2023

Estimates compiled by Climate Integrate based on information from METI, MLIT, company websites

Offshore Wind in Japan: Policy Agenda and Prospects

Taskforce estimates on number ofbase ports required (Feb. 2022 document), MLIT

Fig. 08

Number of ports required for ���� targets
Number of ports required for ���� targets
NoshiroNiigata
Kitakyushu

Base ports
To be designated as base ports

Aomori

Akita
SakataHokkaido/Tohoku/Hokuriku

�‒��

Kashima

Tokyo/Chubu/Kansai

Chugoku/Shikoku/Kyushu

�‒�

�‒�

�‒�

�

�

Prepared by Climate Integrate based on MLIT material

762028 in Japan, GWEC anticipates no bottlenecks will occur during the forecast period, solong as new vessels in the pipeline are delivered on time.77 A shortage of vessels could occur,

however, if Japan plans to build more offshore wind farms. Meanwhile, Japanese installation
vessels could be also used for projects in other Asia-Pacific markets. 

Roadmap for a domestic supply chain

A whole-of-government approach is needed in order to build this supply chain. Once thetargets and industrial strategies for floating offshore wind have been established, they can beused as a basis to plan out the required supply chain. In the southwestern region of Kyushu,

a branch of METI aims to build a robust local offshore wind supply chain. In 2023, the Kyushu
Bureau of Economy, Trade and Industry set up a regional offshore wind industry network toprovide a forum to share information and ideas and cooperate for the development of the
supply chain.78 In March 2024, 14 companies, including NTT Anode Energy, Tokyo Electric,
Marubeni, and Mitsubishi Corp., set up the Floating Offshore Wind Technology Research

Association. The group will collaborate to develop optimal design criteria and standards forfloating systems, and study serial production technologies for floating offshore wind.79
76

MLIT “Base port locations and sizes to achieve 2050 Carbon Neutrality” February 17, 2022 (p.20) (in77

GWEC “Global Offshore Wind Report” August 28, 2023 (p.33)

78
79

Japanese)

Kyushu Bureau of Economy, Trade and Industry “Kyusu offshore wind network” August 2023 (in Japanese)F loating Offshore Wind Technology Research Association “Launch of the Floating Offshore Wind
Technology Research Association” March 15, 2024

Offshore Wind in Japan: Policy Agenda and Prospects

23

Other roadmaps may be useful references as Japan develops its own supply chain such as one
by the National Renewable Energy Laboratory (NREL) in the U.S., and one by RenewableUK, a
British trade association (Box 3).

Box 3: Roadmaps abroad
United States

The National Renewable Energy Laboratory (NREL) of the U.S. Department of Energy
has published two reports on the offshore wind supply chain roadmap, one in March2022 and the other in January 2023. NREL found that the U.S. will need 2,100 windturbines, 6,800 miles (10,900 km) of cable, and nearly a hundred vessels to achieve

the national target of 30 GW of offshore wind installed capacity by 2030.80 The reports

also presented a detailed roadmap with suggested actions and identified challenges
and solutions needed to develop an offshore wind supply chain that is domesticallysourced. A domestic supply chain that can supply the demand for 4-6 GW installed
annually will likely require an investment of at least $22 billion (3.3 trillion yen)in ports, large installation vessels, and manufacturing facilities, according to thereports.

Required Resources to deploy 30 GW
by 2030 (NREL)

Chart.02

Prepared by Climate Integrate based on NREL material

81

United Kingdom In the UK, a March 2023 report by the Floating Wind Offshore Wind Taskforce foundthat to realize the floating offshore wind scenario of 5 GW by 2030 and 34 GW by

24

80

National Renewable Energy Laboratory  “Supply Chain Road Map for Offshore Wind Energy in the United

81

NREL “Supply Chain Road Map for Offshore Wind Energy in the United States”

States”

Offshore Wind in Japan: Policy Agenda and Prospects

2040, 5–7 integration ports would be needed, and 4–6 substructure manufacturing/assembly ports,82 requiring 4 billion pounds (760 billion yen) in port investment.83 The
report, sponsored by RenewableUK and The Crown Estate, among others, pointed outthat no port facilities in the UK can currently fulfill the infrastructure requirements to
deploy floating offshore wind, and made a series of recommendations.

02

Building consensus with residents and fishing communities
To expand a nation’s offshore wind capacity, it is crucial to have suitable policies andregulatory frameworks in place and to improve the relevant technologies. But that is notenough. Local acceptance is also key. Coordination with local communities and fishery groups
is one of the most crucial elements in offshore wind development to address the concerns ofresidents and fishers.

Once a promotion zone has been designated, the government will hold a tender to selectwind project developers. In the selection process, the government will consider the expectedeconomic impacts and cost of wind power, and also take into account the ability of project

developers to coordinate with the heads of local governments and cooperate with the local
fisheries and shipping industries.84

In a “prospective zone,” a council of stakeholders is set up under the Act on Promoting theUtilization of Sea Areas for the Development of Marine Renewable Energy Power Generation
Facilities (which entered into force in 2019). The council is to be comprised of national

and local government officials, fishery groups, and academics, and to serve as a forum for
consultation to have the zone designated a “promotion zone.” 85

Although the council is expected to play a role in involving the local community and fishing
stakeholders in the project development process, it is often difficult to define the scope of

who should be consulted, especially among fishermen, who often cover a wide area in theirfishing activities. It is hoped that local governments will host study sessions with residents at
an early stage of the process and that the Fishery Agency will prepare maps to help identify

82
83
84
85

Floating Wind Offshore Wind Taskforce “Industry Roadmap 2040” March 2023 (p.4, 50)

Floating Wind Offshore Wind Taskforce “Upgrading our ports is essential to kickstart UK floating offshore

wind industry” March 15, 2023

METI, MLIT “Guidelines for tenders in promotion zones” revised October 2022 (p.8) (in Japanese)

METI, MLIT “Guidelines for the designation of promotion zones” revised July 2021 (p.13) (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

25

which fishermen are operating where.86Box 4: Case study: Working with the fishing community in Choshi City

It is crucial to gain the understanding of local fishermen when developing offshore
wind projects. Choshi City, Chiba Prefecture, is home to a 2.4 MW offshore windturbine, which started as a government pilot project in 2013 and is operating

commercially today. 87 Nearby, Mitsubishi Corporation and C-Tech are developinga 390 MW offshore wind farm scheduled to start operating in 2028. 88 With theseprojects, Choshi represents a successful example of cooperation among stakeholders.
As one example, a maintenance service company was established in September
2020, shortly after Choshi had been selected as a “promotion zone” for offshore

wind. The company, Choshi Cooperative Business Offshore Wind Service (C-COWS),
was founded by the Choshi Fisheries Cooperative Association, Choshi City, and the
Choshi Chamber of Commerce and Industry, to provide maintenance services andtraining for workers for offshore wind farms, and offer tours. 89

In June 2023, Mitsubishi Corp. and Choshi City signed a cooperation agreement
to improve services for citizens by using digital technologies relating to energy,
mobility, and infrastructure. 90

According to the local stakeholder council’s guidelines, offshore wind developers areto contribute to a local government fund and the Chiba Prefecture Fishery Promotion
Fund and study the impacts of the wind turbines on local fishing. 91

One factor in the success of offshore wind power in Choshi, one of Japan’s major

fishing grounds, may have been the pilot project’s track record in providing a forum

for coordination among stakeholders to select a turbine location that would have theminimum impact on fishing. It may have also helped that the fishermen were alreadyfamiliar with the sight of a turbine thanks to the pilot project.

86

Renewable Energy Institute “Proposals for the Coexistence of Offshore Wind with Local Communities and87

TEPCO Renewable Power “Choshi Off-shore Wind Power Plant Overview”

88
89
90
91

26

the Fishing Industry” July 29, 2022

Mitsubishi Corporation “Our business projects”

C-COWS News release September 16, 2020 (in Japanese)

Choshi City, Mitsubishi Corporation News release June 13, 2023 (in Japanese)

Council for off the coast of Choshi City “Opinions of the council” June 5, 2020 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

Ⅴ. P olicy Proposals for Offshore
Wind Expansion
Create a national grand design for offshore wind, with clear and ambitious
targets
To achieve an energy transition in Japan that is aligned with the Paris Agreement, thegovernment needs to create a grand design that provides an overall picture of how Japanplans to promote offshore wind, as well as medium- and long-term installation targets that are
far more ambitious than before. This will send policy signals, both in Japan and globally, byshowing the magnitude of Japan’s offshore wind market ambition, and its potential. Futuretargets should be set separately for floating and fixed-bottom offshore wind, and they should
be articulated as explicit targets for actual generation capacity in operation, not just “in thepipeline.” Envision the full scope of an offshore wind supply chain, and create a roadmap
Assuming that 10 GW of offshore wind capacity will be operational by 2030 based on the

Public-Private Council’s targets, using 15 MW turbines on fixed-bottom foundations, about 670
turbines and foundations would be needed. Similarly, 3,000 turbines and foundations would

be needed if 45 GW were to be in operation by 2040. These estimates can be used to calculate

the required length of cable and the number of vessels and workers, considering the locationsof wind farms and conditions of port facilities. Japan needs a roadmap for the offshore wind
supply chain build-out to develop a major industry and deploy it on a large scale.

The roadmap also needs to incorporate a time frame beyond 2030 to consider a greater shareof components and equipment made in Japan, as well as the export market. 

Clarify policies on maritime use in Japan’s EEZ

Areas available for offshore wind development will increase dramatically once projects within
Japan’s EEZ are enabled by legislation. This greater distance from the coast would also mean
an increase in the number of fisheries communities and stakeholders that wind project

proponents would need to negotiate with. 92 Marine spatial planning should be used to help

identify stakeholders in a transparent manner and find efficient ways to use marine areas. 93

92
93

Fishery Agency FY2020 annual report “Resource management in Japan” Chart 3–6 (in Japanese)
Mitsubishi Research Institute website July 24, 2023 (in Japanese)

Offshore Wind in Japan: Policy Agenda and Prospects

27



Promote consensus-building with local communities

Offshore wind development is a large-scale endeavor that can have massive impacts on local
communities. While offshore wind can stimulate the economy and create jobs, communities

may have concerns about its impact on birds, noise, and low-frequency sound, or even oppose
the construction of offshore wind farms. In efforts to expand offshore wind, it is crucial toensure sufficient opportunities for dialogue and adequate information disclosure to addressenvironmental concerns and also to provide benefits to local communities in order to gain
their support.

Among the key issues in Japan is the relationship with fishermen. Opposition from fishermen
is not unique to Japan. Offshore wind has a relatively short history of about 30 years andresearch is still ongoing regarding impacts on fishing. Japan can learn from experiences inother countries  and from different regions in Japan, and this could lead to better solutions.
The Public-Private Council on offshore wind developments is jointly hosted by METI and MLIT.
It is important to have discussions and build consensus through dialogue with local residents
including fishermen with the participation of the Fishery Agency in the Public-Private Council
and other statutory councils.

28

Offshore Wind in Japan: Policy Agenda and Prospects

In Closing
An expansion of offshore wind power generation will not only increase the share ofclean energy and ensure a stable supply of energy in Japan, but also promote industrial

development and create jobs. Floating offshore wind in particular presents Japan with thepotential to develop a globally competitive industry by actively promoting the technology
before the rest of the world begins to fully embrace power generation by floating windturbines. It is time for Japan to grasp this opportunity by encouraging collaboration between

the public and private sectors, utilizing existing and developing new industries, and promoting
industrial and corporate cooperation.

Offshore Wind in Japan:
Climate Integrate is an independent climate

policy think tank in Japan. Through integrated
approaches to connect scientific, political,

and social dimensions, we support actions for
decarbonization by civil society, business andthe public sector.

Policy Agenda and Prospects
Climate Integrate
April  2024

Written by: Chisaki Watanabe, Kimiko Hirata
Designed by: Yasuyuki Sasaki
climateintegrate.org