Diplomatic Bluebook 2025
Chapter 1
Overview of the International Situation and Outlook for Japan's Diplomacy
2 Outlook for Japan's Diplomacy
The international situation remains severe with Russia's aggression against Ukraine, the situation in the Middle East, and the security environment in East Asia. While the free and open international order based on the rule of law is under serious challenges throughout the world including in the Indo-Pacific region, the Global South is enhancing its presence, and the international community is diversifying. In addition, some countries are experiencing increasing domestic divisions and political tensions. Multilateralism with the UN as its core faces difficulties, but there are a host of global issues including climate change and new threats such as cyberattacks and information manipulation, including the spread of disinformation, which need to be addressed by the international community as a whole, thus calling for cooperation among nations more than ever before.
In the international community at this turning point in history, Japan must ensure the peace, security, and prosperity of its own country and people and proactively create a peaceful and stable international environment by maintaining and strengthening the international order based on values and principles such as freedom, democracy, human rights, and the rule of law. To this end, Japan needs to develop a diplomacy that leads the world toward reconciliation and cooperation from division and confrontation.
Japan has consistently followed the path of a peace-loving nation since the end of World War II, contributing to the peace, stability, and prosperity of the international community including the Asia-Pacific region, and working to maintain and strengthen a free and open international order based on the rule of law. It has also developed a fine-tuned diplomacy with all countries, respecting the diversity of each country, discussing common issues from the same perspective, and providing support that is truly needed by the other party. Furthermore, Japan as a flag-bearer of free trade has promoted a rules-based free and fair economic order under a multilateral trading system. At the same time, Japan has cooperated with developing countries based on the principle of human security(4) and worked toward the resolution of global issues, including the achievement of SDGs, through capacity building support and other measures. It has also actively contributed to nuclear disarmament and non-proliferation and international peacebuilding efforts. As the world reaches a turning point in history, Japan will continue to conduct proactive diplomacy based on the trust that it gained through these diplomatic efforts.
- (4) Human security is a concept that pursues the creation of a country and society where individuals can live happily and in dignity, free from fear and want.
(1) Maintain a Free and Open International Order based on the Rule of Law
A Strengthening of the Japan-U.S. Alliance
The Japan-U.S. Alliance is the cornerstone of Japan's foreign policy and security, and the foundation of the peace and prosperity of the Indo-Pacific. In February 2025, Prime Minister Ishiba visited the U.S. and concurred with U.S. President Donald J. Trump, who took office in January of the same year, to work closely to realize a “Free and Open Indo-Pacific (FOIP)” and to elevate the Japan-U.S. Alliance to new heights.
On the security front, Japan and the U.S. will further strengthen deterrence and response capabilities of the Japan-U.S. Alliance, strengthen the credibility and resilience of extended deterrence, and optimize the response capabilities of U.S. forces in Japan. Japan will also promote efforts to mitigate impact on local communities, including Okinawa, through efforts of expeditiously relocating Marine Corps Air Station (MCAS) Futenma to Henoko while maintaining the stable presence of U.S. forces.
On the economic front, Japan and the U.S. will further expand and deepen broad Japan-U.S. collaboration in the economic field, including efforts to increase investment between Japan and the U.S., partnership in advanced technology, and cooperation for sustainable and inclusive economic growth in the Indo-Pacific region. The two countries will also further strengthen their multilayered people-to-people exchanges.
Through these efforts, Japan will strive to build a strong relationship of trust with the Trump administration and further deepen Japan-U.S. relations. At the same time, Japan will continue to communicate with the Trump administration on the various issues facing the international community and make its contribution.
B Cooperation with Allies and Like-minded Countries
The realization of FOIP, which upholds the core principles of defending “freedom” and “the rule of law” and respecting “diversity,” “inclusiveness,” and “openness,” is one of the most important tasks for Japanese diplomacy. In order to realize FOIP, it is important to build and expand networks with allies and like-minded countries, in addition to the Japan-U.S. Alliance. To this end, Japan will further expand practical cooperation among Japan-Australia-India-U.S. (Quad), Japan-U.S.-ROK, Japan-U.S.-Australia, and Japan-U.S.-Philippines, the G7, as well as with the Association of Southeast Asian Nations (ASEAN), Australia, India, the ROK, the EU, NATO, and others.
The G7 is working closely to address the various issues facing the international community, such as Russia's aggression against Ukraine and the situation in the Middle East. As the security of Europe, the Middle East, and the Indo-Pacific becomes increasingly intertwined, Japan will contribute to the further strengthening of cooperation among the G7 in order to maintain and strengthen the free and open international order based on the rule of law.
With Australia, as a central pillar of the coordination among like-minded countries, Japan has established a close cooperative relationship in a wide range of fields. The two countries will work to further deepen their “Special Strategic Partnership,” including by strengthening security cooperation, in fields such as cyber and economic security.
With the EU and NATO, Japan will further strengthen security cooperation based on the recognition that the security of the Euro-Atlantic and Indo-Pacific regions is inseparable and in light of the progress made in cooperation in recent years.
In addition to Japan-Australia-India-U.S. (Quad) and Japan-U.S.-ROK, the first-ever Japan-U.S.-Philippines Summit was held in 2024, and Japan is strengthening the multilayered cooperation with like-minded countries. Japan will continue to strengthen such multilayered cooperation in the future.
C Japan's Own Efforts
As Japan faces the most severe and complex security environment since the end of World War II, it will work to improve its response capabilities in cybersecurity, as well as promote the transfer of defense equipment and Official Security Assistance (OSA) program, under the National Security Strategy.
In addition, in countering the threat of terrorism and violent extremism, as well as transnational organized crime, including cybercrime, Japan will continue its efforts and international contribution.
On economic security, Japan will also continue to work on enhancing supply chain resilience, addressing economic coercion, and protecting and promoting critical and emerging technologies, in close coordination with its ally and like-minded countries.
In response to international information warfare, such as the spread of disinformation, Japan will strengthen its capabilities to collect and analyze information, and ensure timely and appropriate dissemination, while building and reinforcing its information security infrastructure. At the same time, Japan will provide information to gain the understanding and support of the Japanese public for its foreign policy by intensifying communication through social networking services (SNS) and other means.
(2) Relations with Neighboring Countries and others
Japan will build stable relations with neighboring countries, while dealing head-on with difficult issues.
A Japan-China Relations
While there are various potentials for improved ties between Japan and China, there are a number of issues and concerns, such as unilateral attempts to change the status quo by force in the East China Sea, including the situation surrounding the Senkaku Islands, and the South China Sea, and a series of military activities around Japan, including those coordinated between China and Russia. Peace and stability across the Taiwan Strait are also important. Japan is also seriously concerned about the human rights situation in China and the situation in Hong Kong.
At the same time, both Japan and China share significant responsibility for the peace and prosperity of the region and the world. Under a broad direction of comprehensively promoting a “Mutually Beneficial Relationship Based on Common Strategic Interests” and building “constructive and stable Japan-China relations,” Japan and China should make joint efforts to reduce issues and concerns, and increase cooperation and coordination.
B Japan-Republic of Korea (ROK) Relations
The ROK is an important neighbor which should work as a partner on challenges in the international community. In light of the current strategic environment, the importance of Japan-ROK relations remains unchanged. Japan continues working closely together bilaterally with the ROK and trilaterally with the U.S. and the ROK, including on policies toward North Korea.
Takeshima is an inherent territory of Japan in light of historical facts and based on international law. Japan will deal with the issue in a resolute manner based on this consistent position.
C Japan-China-ROK Trilateral Cooperation
Japan-China-ROK Trilateral Cooperation is important for regional and global peace and prosperity from a broad perspective. Japan will continue to steadily advance this framework as the chair country.
D North Korea
North Korea's nuclear and missile development is totally unacceptable. Japan is also seriously concerned about the moves to advance the Russia-North Korea military cooperation such as the deployment of North Korean troops to Russia, including the recent developments, and Russia's procurement and use of weapons and munitions including ballistic missiles from North Korea, given their impact not only on the situation in Ukraine but also on the security of the region surrounding Japan. Japan will work closely with the international community toward the full implementation of the relevant UN Security Council resolutions.
Japan's basic policy remains unchanged: Japan will achieve the normalization of relations with North Korea, in accordance with the Japan-DPRK Pyongyang Declaration, by comprehensively resolving outstanding issues of concern, such as the abductions, nuclear and missile issues, as well as settlement of the unfortunate past. In particular, with the aging of the abductees and their families, the abductions issue is a time-sensitive, humanitarian issue with no time to spare, as well as a matter of infringement of the sovereignty of Japan in nature. In order to realize the return of all abductees at the earliest possible date and resolve the outstanding issues of concern between Japan and North Korea, Japan will spare no effort in taking the most effective measures toward that goal.
(3) Response to Russia's Aggression against Ukraine
Russia's aggression against Ukraine is an outrageous act that shakes the very foundations of the international order. In addition, threats by Russia of nuclear use, let alone its use, are inadmissible. In order to stop Russia's aggression against Ukraine and achieve a just and lasting peace as quickly as possible, Japan will work in close cooperation with the international community, including the G7, to strongly promote support for Ukraine and sanctions against Russia. Japan will also strengthen its efforts to support Ukraine's recovery and reconstruction, through collaboration between both the public and private sectors.
While Japan-Russia relations continue to face a difficult situation, it is unacceptable to shift the responsibility onto Japan. Japan will continue to take a firm stance against unilateral disseminations and measures taken by Russia. At the same time, there are pending issues between Japan and Russia that need to be addressed by both countries as neighbors, thus it is essential to communicate appropriately with the Russian side. Japan will firmly maintain its policy of concluding a peace treaty through the resolution of the Northern Territories issue. Regarding the resumption of the Four-Island Exchange and Visit Program, which is one of its top priorities, Japan will continue to strongly urge the Russian side to resume the program, with particular focus on visits to graves in the Northern Territories.
(4) Response to the Situation in the Middle East
The Middle East is one of the major sources of energy supply for the international community, including Japan, and peace and stability in the region, including the safety of navigation, are extremely important for energy security as well as the stability and growth of the global economy.
On the other hand, the situation in the Middle East remains uncertain. Regarding the Gaza Strip, in January 2025, the agreement reached by the parties on the release of hostages and a ceasefire is an important step forward, improving the humanitarian situation and de-escalating tensions. The agreement should be implemented steadily and in good faith. The full implementation of the ceasefire agreement between Israel and Lebanon is also essential. In Syria, Japan strongly hopes for an inclusive political solution through dialogue among the Syrian people.
Japan will continue to make efforts as a responsible member of the international community, to de-escalate the situation as quickly as possible, improve the humanitarian situation, and establish a medium to long-term peace and stability in the region, in close coordination with the G7, the UN, and other relevant countries and organizations, as well as by leveraging its good relations with countries in the Middle East. Furthermore, Japan will proactively engage in diplomatic efforts in close cooperation with the countries concerned, while taking into consideration the issues of concern and needs of each country through various dialogue frameworks such as the “Japan-Arab Political Dialogue” and the “Japan-Gulf Cooperation Council (GCC)(5) Foreign Ministers' Meeting.”
- (5) Gulf Cooperation Council (GCC): Established in 1981 by Saudi Arabia, the United Arab Emirates (UAE), Bahrain, Oman, Qatar, and Kuwait. The objective of the GCC is to achieve coordination, integration, and interconnection among member states in a wide range of areas, including defense and economy.
(5) Regional Diplomacy Issues
While the Global South is enhancing its presence, in order to lead the international community toward cooperation, and to work together to create solutions to various challenges that face the international community, it is important to engage with each country and region in a fine-tuned manner, taking into account their circumstances and characteristics, through an approach that emphasizes diversity and inclusiveness. Japan will also promote fine-tuned diplomacy through close dialogue, utilizing Official Development Assistance (ODA) and Official Security Assistance (OSA). With regard to ODA, Japan will build new mechanisms, such as promoting the mobilization of private finance.
The stability and prosperity of ASEAN, which is the key of the Indo-Pacific, is extremely important for Japan and the entire Indo-Pacific region. Japan will promote cooperation with Southeast Asia, a region of strategic importance as a marine transportation hub and a global growth center, through initiatives(6) such as the outreach activities to Southeast Asia through the Organisation for Economic Co-operation and Development (OECD) and the expansion of collaborative projects in a wide range of fields, such as AI and digital, energy, and human resource development in the Asia-Pacific Economic Cooperation (APEC).
India is an important partner in the realization of a “Free and Open Indo-Pacific (FOIP),” that shares fundamental values and strategic interests. Japan and India, both democratic countries in Asia, share a great responsibility for peace and stability in the Indo-Pacific region and the world. Both Japan and India will further deepen cooperation in a wide range of fields, including economy, security, people-to-people exchanges, etc., under the “Special Strategic and Global Partnership.”
Southwest Asia, including India, is a strategically important region located at a key point along the sea lanes of communication linking Japan with the Middle East and Africa. This region, with a population of approximately 1.9 billion and high economic growth rates, is an attractive market and production base for Japanese companies. The countries in Southwest Asia and Japan have longstanding friendly ties, and over the years, Japan has deepened its engagement in a wide range of areas. Based on this foundation, Japan will further deepen its relations with the countries in Southwest Asia, which are important partners.
The Pacific Islands countries region is a critical region from the perspective of realizing FOIP. Based on the outcome of the 10th Pacific Islands Leaders Meeting (PALM10) held in July 2024, Japan will strongly support the development of Pacific Island countries and their unity, respecting the needs of each country.
Africa, which is expected to account for a quarter of the world's population by 2050, is a young and hopeful continent with great potential for dynamic growth. For over 30 years since the launch of the Tokyo International Conference on African Development (TICAD) in 1993, Japan has been making efforts based on the spirit of supporting African-led development. Japan will make efforts to co-create solutions to various issues with African countries, building on its past efforts and seizing the opportunity of the 9th Tokyo International Conference on African Development (TICAD 9), to be held in Yokohama in August 2025.
Latin American and the Caribbean (LAC) countries, many of which share values and principles with Japan, are important partners in countering the challenges to the current international order. Japan promotes cooperation with LAC countries through the “Diplomatic Initiative toward Latin America and the Caribbean,” under the policy of recognizing the diversity of LAC and tackling common challenges through dialogue. LAC is an important region for Japan's economic security, producing critical minerals and food resources, and the Nikkei (Japanese immigrants and their descendants) communities, numbering approximately 3.1 million in this region, are the foundation of the friendship and trust. In 2025, Japan will continue to accumulate new cooperation initiatives through such opportunities as diplomatic anniversaries with Brazil and Central American countries, as well as the 30th Conference of the Parties to the United Nations Framework Convention on Climate Change (COP30) hosted by Brazil.
The countries in Central Asia and the Caucasus, while having close historical and economic ties with Russia, have been affected in various aspects by Russia's aggression against Ukraine. Japan will promote cooperation as a partner in maintaining and strengthening a free and open international order based on the rule of law, while also utilizing frameworks such as the “Central Asia plus Japan” Dialogue.
- (6) The OECD is strengthening its relationship with ASEAN member states through outreach activities in Southeast Asia, including the “Southeast Asia Regional Programme (SEARP),” established by Japan's initiative with the aim of promoting OECD standards in economic and social fields, such as investment, competition, taxation, and small- and medium-sized enterprises. In addition, the number of APEC projects proposed by Japan in collaboration with Southeast Asian countries has been increasing year by year, and the scope of these projects has been expanding to include a wide range of fields such as AI and digital, energy, and human resource development.
(6) Promotion of Cultural and People-to-people Exchanges
For the peace and stability of the international community, promoting mutual understanding through exchanges ─ both between countries and among people ─ is crucial. Japan will further promote people-to-people exchanges with other countries and actively develop cultural diplomacy, while also focusing on fostering understanding of Japan in other countries.
(7) Economic Diplomacy
To contribute to the growth of Japan's economy and regional revitalization, Japan will support the overseas expansion of Japanese companies, increase exports of Japanese food products, and promote foreign direct investment in Japan. At diplomatic missions overseas, heads of missions lead efforts to assist Japanese companies, working with the officials in charge of cross-border economic affairs and Japanese business support, and will also promote direct investment in Japan.
Japan will promote initiatives to ensure the success of the 2025 World Exposition (Expo 2025 Osaka, Kansai, Japan) and the International Horticultural Expo 2027, Yokohama, Japan (GREEN×EXPO 2027).
It is also important to work toward maintaining and expanding a rules-based, free, and fair economic order. Japan will make efforts to pursue the WTO reform to further strengthen the multilateral trading system, promote Economic Partnership Agreements, including the Comprehensive and Progressive Agreement for Trans-Pacific Partnership (CPTPP), and establish international rules in emerging fields, such as promotion of the “Hiroshima AI Process”(7) and Data Free Flow with Trust (DFFT).
- (7) Hiroshima AI Process: A process for discussing international rules about generative AI, launched at the G7 Hiroshima Summit in May 2023, under Japan's presidency. In the G7 leaders' statement of December 2023, the “Hiroshima AI Process Comprehensive Policy Framework” including “Hiroshima Process International Guiding Principles for All AI Actors” and “Hiroshima Process International Code of Conduct for Organizations Developing Advanced AI System” was endorsed.
(8) Promotion of Multilateral Diplomacy
In 2025, as the UN marks its 80th anniversary, Japan will promote multilateral diplomacy with the UN at its core and work to strengthen UN functions, including reform of the UN Security Council, with the aim of leading the increasingly divided and confrontational international community toward reconciliation and cooperation.
Japan will continue to promote human rights diplomacy in its own way and diplomacy centered on the participation of women, as the 2025 co-chair of the Women, Peace and Security (WPS) Focal Points Network.
With regard to nuclear disarmament and non-proliferation, Japan will advance realistic and practical efforts toward a world without nuclear weapons, maintaining and strengthening the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) regime, the only universal framework in which both nuclear-weapon and non-nuclear-weapon States widely participate. In particular, 2025 marks the 80th year since the atomic bombings of Hiroshima and Nagasaki. Japan, as the only country to have ever suffered atomic bombings during war, will further promote across generations and borders an accurate understanding of the realities of the atomic bombings, which is the starting point for all measures toward nuclear disarmament.
Regarding the safety of the discharge of ALPS treated water(8) into the sea, Japan will maintain close coordination with the International Atomic Energy Agency (IAEA), provide detailed explanation both domestically and internationally, based on scientific evidence in a highly transparent manner, and gain understanding.
- (8) ALPS treated water is water which is processed by devices such as ALPS (Advanced Liquid Processing System) to ensure that the radioactive materials other than tritium surely meet the regulatory standards for safety. ALPS treated water is then sufficiently diluted so that the concentrations of the radioactive materials including tritium are far below the regulatory standards for safety, and then finally discharged into the sea.
(9) Resolving Global Issues
On global issues such as climate change, global health, and disaster risk reduction, Japan will accelerate its efforts to achieve SDGs by the year 2030 based on the concept of human security. Japan will also lead the international rule-making efforts for global issues, looking toward the SDGs and beyond. The Ministry of Foreign Affairs (MOFA) will support activities of Japanese nationals who work in international organizations.
(10) Strengthening of the Comprehensive Foreign and Consular Policy Implementation Structure
In order to achieve these goals, MOFA will work toward strengthening its personnel structure, improving its financial basis, streamlining operations, promoting Digital Transformation (DX), and workstyle reforming, and fundamentally enhancing the diplomatic and consular implementation structure.
MOFA will also promote the strengthening of diplomatic missions overseas to ensure full preparedness for responding to crises, protecting Japanese nationals, and implementing information security measures.