Number 163, May 1999
**Japan’s Security Policy
by Toshio Saito**Conclusions- Uncertainty remains in the Asia-Pacific region    years after the collapse of the Soviet Union. Several nations in the region are expanding    or modernizing their military capabilities. Continuing tension on the Korean peninsula, as    well as the proliferation of weapons of mass destruction and their delivery systems add,    to the region’s instability. 
- Based on "the National Defense Program    Outline in and after FY 1996", Japan is reshaping its defense capability, but it    remains committed to four fundamentals: it maintains an exclusively defense-oriented    policy, avoids developing military capabilities that might threaten other countries,    adheres to non-nuclear principles, and upholds civilian control of the military. 
- The *Japan-U.S. Joint Declaration on Security:    Alliance for the 21st Century* in April 1996 reaffirmed the importance of the    Japan-U.S. Security Arrangements. The declaration addressed bilateral cooperative efforts    designed to increase the credibility of the security relationship and the initiation of a    review of the 1978 Guidelines for Japan-U.S. Defense Cooperation. 
- North Korea’s missile launch in August 1998    awakened most Japanese to the military threats facing Japan and stimulated discussion on    Guideline-related bills and on the legal issues concerning emergency situations.  
- The Japan Self-Defense Forces (SDF) need to    develop joint operational expertise and overall intelligence capabilities for dealing with    emergency situations. The SDF also needs to use defense diplomacy to help develop a more    stable regional security environment. 
**Japan’s Basic Defense Policies

Following World War II Japan’s Imperial Armyand Navy were dissolved, and the old regime was replaced with a democratic government.Article 9 of the new Constitution of Japan renounced war or even possessing combatpotential.

However, the Cold War and the Korean War forcedJapan to reestablish defensive capabilities. A constitutional interpretation of Article 9grants Japan the inherent right of self-defense and the possession of the minimum armedstrength needed to exercise that right. The Government of Japan (GOJ) viewpoint has beenthat building forces to defend the region, even under a collective defense umbrella,exceeds the minimum necessary strength required for the self-defense of Japan.

The GOJ has maintained the SDF, improved itsdefensive capability, and conducted operations, in accordance with four fundamentals. 

**Exclusively Defense-Oriented Policy.** Thispolicy means that defense forces cannot be used until an armed attack on Japan isinitiated by another country, and that the use of such forces is kept to the minimumnecessary for self-defense. Moreover, the defense capability of Japan must be limited tothe minimum necessary level.

**Not Posing a Military Threat to other Countries.**Japan will not possess, beyond the minimum necessary level for self-defense, militaryforces strong enough to pose a military threat to other countries.

**Adhering to Three Non-Nuclear Principles.** Thethree non-nuclear principles include: "not possessing nuclear weapons, not producingthem and not permitting their introduction in Japan." Japan ratified the NuclearNon-Proliferation Treaty in 1976, placing itself under obligation, as a non-nuclear weaponstate, not to produce or acquire nuclear weapons.

**Ensuring Civilian Control of the Military.**The democratic government maintains control of the military. Due to the regrettablesituations in Japan in the pre-World War II era, it has adopted an uncompromising systemof civilian controls.
**National Defense Program Outline in and after FY1996

Until FY 1995, Japan had been improving its defensecapability pursuant to the 1976 "National Defense Program Outline (NDPO)." TheSDF has played increasingly diverse roles in dealing with large-scale disasters andcontributing towards a more stable security environment by participating in internationalpeace cooperation activities, in addition to its principal mission of defending Japan. TheGOJ established the "NDPO in and after FY 1996", to reshape the SDF toeffectively conduct the following roles and missions:

**National Defense.** Prevent aggression againstJapan and maintain the Japan-U.S. Security Arrangements. Japan relies upon U.S. nucleardeterrence against the threat of nuclear weapons, yet it actively participates ininternational efforts for realistic and steady nuclear disarmament, aimed at establishinga world free from nuclear weapons.

Should indirect aggression, or any military activitythat might lead to aggression, against Japan occur, the SDF would act to quickly settlethe situation.

Should direct aggression occur, the SDF wouldconduct joint operations, in cooperation with the United States, to quickly repel suchaggression.

**Coping with large-scale disasters and variousother situations.** In case of large-scale natural disasters, terrorism, or othersituations that require the protection of people’s lives and assets, the SDF wouldconduct necessary and timely operations in close cooperation with related organizations.

Should a situation arise near Japan that would havean important influence on Japan’s peace and security, the SDF would act in accordancewith the Constitution of Japan by properly supporting UN activities and by coordinatingwith the United States.

**Contribution to a more stable securityenvironment.** The SDF contributes to international peace efforts by participating in UNPeacekeeping Operations and international disaster relief activities. It promotesconfidence-building measures through security dialogues and other defense-related exchangeactivities with other nations.

Japan cooperates with the UN and other internationalorganizations to prevent the proliferation of weapons of mass destruction (WMD) and theirdelivery systems, as well as to control and regulate conventional weapons.

The SDF is reshaping and strengthening its forcestructure based on the 1996 NDPO. The enhancement of the Joint Staff Council’sfunctions, and closer relationships among related organizations within the Japan DefenseAgency (JDA), are highlighted in the SDF reshaping process. The new force structure of theSDF is shown in Table 1.
**Comparison of Japan’s Defense Expenditure withOther Nations

Table 2 compares Japanese defense expenditures tothose of other major Organization for Economic Cooperation and Development (OECD) nations.The comparison shows that despite Japan’s effort to spend less than one percent ofits GDP on defense, it still supports defense at roughly the same total level asAmerica’s other major power allies (France, Germany, and the United Kingdom.)
**Reaffirmation of U.S.-Japan Arrangements

Japan and the United States have worked closely toincrease the credibility of the bilateral alliance. The results of this cooperation werepublished in the *Japan-U.S. Joint Declaration on Security: Alliance for the 21stCentury,* which was signed by former Prime Minister Ryutaro Hashimoto and PresidentWilliam Clinton on April 17, 1996.

The Joint Declaration reaffirmed that the Japan-U.S.security relationship remains the cornerstone for achieving common security objectives andmaintaining a stable and prosperous environment for the Asia-Pacific region for the 21stcentury. It addressed the following:
- Enhancement of the exchange of information and    views on the international situation, and consultation on defense policies and military    postures; 
- A review of the 1978 Guidelines for Japan-U.S.    Defense Cooperation, and studies on bilateral cooperation in dealing with situations in    areas surrounding Japan that will have an important influence on the peace and security of    Japan; 
- Further cooperation based on the Japan-U.S.    agreement concerning the reciprocal provision of logistics support, supplies, and services    between the SDF and the U.S. Forces; 
- Enhancement of the mutual exchange of technology    and equipment; and 
- Prevention of the proliferation of WMD and their    delivery systems and cooperation in the ongoing study on ballistic missile defense.  
The Joint Declaration alsostated that the two governments will strive to achieve a more peaceful and stable securityenvironment in the Asia-Pacific region. It recognizes that U.S. engagement in the region,supported by the U.S.-Japan security relationship, constitutes the foundation for suchefforts. With regard to global cooperation, the Joint Declaration referred to the twogovernments’ cooperation in support of the UN and other international organizationsthrough peacekeeping and humanitarian relief operations, and to their coordination on suchissues as arms control and disarmament.
**Guidelines Review and Legislation of theGuidelines-Related Bills

The 1996 Joint Declaration provided for a review ofthe 1978 Guidelines for Japan-U.S. Defense Cooperation to enhance the credibility of thebilateral security relationship. These review activities were conducted by theSubcommittee for Defense Cooperation, which consists of Japanese bureau directors and U.S.assistant secretaries, under a Japan–U.S. ministerial/secretarial level committee,the Security Consultative Committee (SCC). After a 15-month review, the new Guidelines forJapan-U.S. defense cooperation were approved and published by the SCC on September 23,1997. The aims of the new guidelines are:
- To create a solid basis for more effective and    credible U.S.-Japan cooperation in peace, in case of an armed attack against Japan, and in    situations in areas surrounding Japan that will have an important influence on    Japan’s peace and security. 
- To provide a general framework and policy    direction for the roles and missions of the two countries and ways of cooperating and    coordinating, both in peacetime and during contingencies. 

The 1997 Guidelines and programs under theGuidelines are consistent with the following basic premises and principles:
- The rights and obligations under the U.S.-Japan    Security Treaty and its related arrangements, as well as the fundamental framework of the    U.S.-Japan alliance, will remain unchanged.  
- Japan will conduct all its actions within the    limitations of its Constitution and in accordance with its four fundamental priniciples. 

The 1997 Guidelines detail Japan-U.S cooperationmatters regarding (1) normal circumstances, (2) actions in response to an armed attackagainst Japan, and (3) situations in areas surrounding Japan. Information sharing andpolicy consultation, various types of security cooperation, and bilateral programs arehighlighted for cooperation under normal circumstances. Operations in case of an armedattack against Japan are also addressed in the 1997 Guidelines. 

The Guidelines clarify what Japan can do insituations in areas surrounding Japan in order to enhance the credibility of theJapan-U.S. security arrangements. The Guidelines address the following fields ofcooperation in situations in areas surrounding Japan: 
- Cooperation in activities initiated by either    Government (relief activities regarding refugees, search and rescue operations,    noncombatant evacuation operations, activities for ensuring the effectiveness of economic    sanctions); 
- Japan’s support for U.S. Forces activities    (use of facilities by U.S. Forces, rear area support); and, 
- Japan-U.S. operational cooperation (surveillance,    minesweeping, sea and airspace management). 

The GOJ laid the Guidelines-related bills before theDiet last year in order to ensure the effectiveness of the 1997 Guidelines by authorizingthe SDF to conduct necessary cooperative activities. The lower house has approved thelegislation and the upper house approval is expected soon.
**Some Future Prospects

The Defense Guidelines Review and Guidelines-relatedlegislation will facilitate the credibility of the bilateral defense cooperation. The JDAalso fosters defense diplomacy through bilateral and multilateral security dialogues andseveral kinds of defense-related exchanges, especially with nations in the Asia-Pacificregion. Japan will continue its defense diplomacy and maintain its strategic bilateral tiewith the United States. 

The North Korean three-stage missile launch overJapan in August 1998 will probably result in additional legislation on emergencysituations. At the same time, the SDF will develop its joint operational capability andits bilateral operational cooperation with the U.S. Armed Forces. The JDA is increasingresources to improve intelligence capabilities and its dissemination of reliable, timelyproducts to SDF and GOJ customers.

Instability and uncertainty in the Asia-Pacificregion will exist into the foreseeable future. Japan is likely to reformulate its securitystrategy and defense policies to reduce the threats posed by WMD and their deliverysystems. Tokyo will continue to cultivate a more peaceful and stable security environmentin the region.

Toshio Saito, of the Government of Japan (GOJ), is a visiting fellowat the Institute for National Strategic Studies. For more information he can be contactedby e-mail at [email protected] Information regarding Japan’s Defense Policy is alsoavailable on the Japan Defense Agency website at http://www.jda.go.jp/index_.htm.Opinions, conclusions, and recommendations expressed or implied in this paper are solelythose of the author and do not necessarily represent the views of the National DefenseUniversity, Department of Defense, or any other U.S. or Japanese agency.

The Strategic Forum provides summaries of work by members and guestsof the Institute for National Strategic Studies and the National Defense Universityfaculty. These include reports of original research, synopses of seminars andconferences,the results of unclassified war games, and digests of remarks by distinguishedspeakers.

Editor in Chief - Hans Binnendijk

Editor - Jonathan W. PierceNOTE

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