JAPAN ENHANCED ENGAGEMENT WITH ASEAN UNDER ABE: DRIVERS

AND PERSPECTIVES
Cdr Mahadzir Mokhtar RMN
ABSTRACT
This study is about Japan enhanced engagement towards ASEAN which focuses on
Abes second tenure as prime minister since December 2012. Since Japan-ASEAN
relations were established in 1973, the working policies were based on three doctrines,
Fukuda Doctrine (1977-1986), Takeshita Doctrine (1987-1996) and Hashimoto
Doctrine (1997-2006). As the relations enter stagnation phase (2006-2012), there
were neither new working policy was established nor new diplomatic initiatives were
conducted by Japans prime ministers towards engaging the ASEAN. After Abe took
over as prime minister on December 2012, Abe Doctrine was established and Abe
visited all the ten ASEAN countries within his first year as premier to unveil the
doctrine. This study has identified that the stagnation of Japans diplomatic initiatives
were due to policy shift, domestic political instability and economic downturn.
Meanwhile the factors that drive Japans enhanced engagement towards ASEAN are
the concerns on China rise, capture economic dynamism, maritime security
concerned, and leadership enthusiasm in cooperation and partnership with ASEAN.
The study concludes that Japan-ASEAN relations have been enhanced during Abes
second tenure of premiership based on the elements of Political and Security,
Economy and Socio-Cultural. As a whole, the concern on the rise of China in
relations to Japans economic interest propel Japan to strengthen its bilateral relations
with allies and multilateral organisation in the region especially ASEAN.

INTRODUCTION
Based on history, Japan looked at Southeast Asia as a region which is rich with
natural resources and also as a developed area.

Following on to the post-war

relationship, the engagements were more concentrated on war reparations negotiations

which were officiated through the Reparation and Economic Agreement involving
Myanmar, the Philippines, Indonesia and South Vietnam (Sudo, 2005, p. 5).
Meanwhile, the engagements with other Southeast Asian countries were based on
economic relations such as Official Development Aid (ODA), investments and trade.
This relationship was based on the comprehensive framework set up in the Yoshida
Doctrine which emphasised on building alliance with the US for Japans security,
economic relations and keeping a low profile in its international politics (Miguel,
2013, p. 100). Therefore during this era, the normalization with the Southeast Asian
countries centred on economic diplomacy which involved war reparations payment
and economic assistance.

When the Association of Southeast Asian Nations (ASEAN) was established

on 8 August 1967 by the five founding countries (Indonesia, Malaysia, Philippines,
Singapore and Thailand), the Japanese government reacted favourably and gave
encouragement towards the regionalism institution which is in line with Japans
development strategy (Sudo, 2005, p. 5). Japan has initiated series of diplomatic
initiatives and engagements in order to assist ASEAN based on political, economic
and socio-cultural aspects. These efforts enable ASEAN to develop long lasting
impacts which form the foundation of the relationship between Japan and ASEAN
(Shiraishi & Kojima, 2014, pp. 2-4).

This study highlights Japan enhanced

engagement towards ASEAN which focuses on Abes second tenure as prime minister
since December 2012.

The discussion covered on Japans diplomatic initiatives

towards ASEAN, followed by Japans concerned on China rise and Abes approach
towards enhancing engagement with ASEAN.
JAPAN DIPLOMATIC INITIATIVES TOWARDS ASEAN
In the early 1970s, Japan-ASEAN relations were affected by the anti-Japanese
movements. Trade frictions with ASEAN required Japan to take quick actions in
order to ensure its pursuit for economic diplomacy with ASEAN was maintained.
However, the oil crisis in 1973 had forced Japan to continue its aggressive resource
policy which further worsened the situation. In addition, Japans synthetic rubber
industry had also created a threat to the export of natural rubber by most of the
Southeast Asian countries. Based on ASEANs pressing demand, Japan established an
informal dialogue to resolve its synthetic rubber issue in November 1973 which Japan
agreed to ensure that ASEANs natural rubber production is not affected by its
synthetic rubber production (Sudo, 2005, pp. 6-8).

After the informal dialogue, Japan took another step to establish a formal
dialogue with ASEAN in 1977 with the convening of the ASEAN-Japan Forum in
March 1977 (Ministry of Foreign Affairs of Japan, 2013). At this point of time, Japan
has become the first country to establish itself as a dialogue partner with ASEAN.
This formalized dialogue has created a strong diplomatic push to develop a new policy

towards ASEAN. Three doctrines were introduced in three phases to promote the
relations and regional cooperation. All these doctrines are further developed into
engagements and activities in order to advance the Japan-ASEAN relations (Sudo,
2005, p. 2). Japanese PMs official visits to the region and precedence statements
made during the visit have created a strong impact towards the political relations and
engagement between Japan and ASEAN.
Fukuda Doctrine Phase (1977-1986)
The first distinct diplomatic initiative towards ASEAN was initiated by Prime
Minister (PM) Takeo Fukuda in 1977 by introducing the Fukuda Doctrine. This initial
phase intended to promote closer friendship and reconstruct the rationale of
international relations between Japan and ASEAN. This doctrine has become the new
working principles with ASEAN which consists of three main pillars emphasizing
Japans stand in rejecting the role of military power, consolidating relationship
through mutual confidence and trust and lastly, to be an equal partner with ASEAN
(Mission of Japan to ASEAN, 2015). During this phase, Japan-ASEAN Forum was
established in 1977 as a foundation for economic and cultural cooperation between the
two parties.

In addition, Japan-ASEAN Foreign Ministers Meeting and Japan-

ASEAN Economic Ministers Meeting were established in 1978 and 1979 respectively
(Sudo, 2005, pp. 17-19). This has been the stepping stone for Japan to improve
engagement with ASEAN using economic cooperation and mutual trust as the main
initiatives.
Takeshita Doctrine Phase (1987-1996)
This is followed by the introduction of Takeshita Doctrine initiated in 1987
during PM Noboru Takeshitas administration. The intent during this phase is to
create a new partnership towards peace and prosperity for Japan and ASEAN. The
doctrine consists of three main policies towards strengthening economic resilience,
promoting political coordination and promoting cultural exchanges with ASEAN.
During this phase, the ASEAN-Japan Development Fund was established, focusing on
large scale government projects in order to stimulate ASEAN economies. Among the

economic issues highlighted are Myanmars economic development and East Asia
Economic Caucas (EAEC) proposals. Meanwhile, the political and security aspects
being emphasised were the resolution of the Cambodian conflict and its reconstruction
(Sudo, 2005, pp. 21-26).
Hashimoto Doctrine Phase (1997-2006)
Finally, the Hashimoto Doctrine was introduced in 1997 during PM Ryutaro
Hashimotos administration. The concentration was emphasised on the reformation of
the existing cooperative relationship based on the new era. The doctrine consists of
three policies which promotes all levels engagements, understands cultural
cooperation as well as sharing of wisdom and experiences between Japan and
ASEAN. During this phase there were significant numbers of diplomatic initiatives
especially in the economic aspects due to the impact of financial crisis which affected
most of the ASEAN countries. Throughout the financial crisis period, Japan continues
to assist the affected ASEAN countries in achieving their economic structural reforms
(Sudo, 2005, pp. 35-36).
Stagnation Phase (2006-2012)
As PM Shinzo Abe took over the premiership from Koizumi in September 2006, the
first official visit conducted is to Indonesia and Malaysia in August 2007. In his
policy speech, he highlighted three policies towards ASEAN which consist of
realizing the Economic Partnership Agreement, promoting the Mekong region, and
peace building assistance. In other words, the policies did not refer to the Fukuda
Doctrine although the expectation on the reappraisal of the Fukuda Doctrine was
highly expected by ASEAN. Nevertheless PM Abes premiership only lasted for a
year due to low approval ratings in the cabinet and suffering poor health which made
him resigned on September 2007 (Sudo, 2015, pp. 202-203). Therefore the realization
of the policy highlighted did not really materialize.
As PM Yasuo Fukuda took over the premiership, no major policy was
introduced until May 2008 due to limited time and preparation. ASEAN expectation

grew higher since China has emerged as Japans competitor with regards to relations
and its engagement with ASEAN. As PM Fukuda announce the New Fukuda
Doctrine the new approach towards ASEAN in May 2008, it failed to convince
ASEAN leaders to accept it compared to the previous three doctrines adopted earlier
(Sudo, 2015, pp. 203-204). The failure was mainly due to not being transpired
directly to the ASEAN countries through any diplomatic visits or initiatives.
Realizing the need to improve LDP political stand, PM Fukuda resigned after serving
for one year. PM Taro Aso who took over on September 2008 also had to resign due
to LDP worst defeat in the September 2009 general election (Kantei.go.jp, 2015). The
short terms of premiership by LDP candidates starting from PM Abe were unable to
convince the Japanese citizen and the frequent change of government is expected to
lessen the confidence of the public. In addition, the diplomatic initiatives towards
ASEAN were observed have been reduced.
As the DPJ took over the government in September 2009, three DPJ
candidates had the opportunity to become PM but all of them were unable to perform
the responsibility against high expectations of the Japanese citizens.

PM Yukio

Hatoyama had to resign due to public uproar after he was unable to fulfil his campaign
promises to close the Marine Corps Air Station in Okinawa. PM Naoto Kan took over
in Jun 2010, had to resign on September 2011 due to poor approval rate and handling
of the Tohuku earthquake and tsunami in March 2011. Meanwhile PM Yoshihiko
Noda had to take the responsibility when the DPJ lost the general election in
December 2012 (Kantei.go.jp, 2015).
In addition, Japan experienced another economic stagnation in 2008 which
observed its gross domestic product (GDP) dropped at the annualize rate of 12% due
to the effect of industrial production dropped by 38%. Meanwhile its GDP continue to
shrink in 2009 and wipe out the previous five year of recovery (The Economist, 2009).
The economic stagnation has also affected the economic relations between Japan and
the ASEAN Member States (AMS) especially with regards to the investment and
ODA contributions in 2008.
JAPANS CONCERN ON CHINAS RISE

China was actively engage with ASEAN through political and economic cooperation
in 1990s largely through bilateral relations. Now, it seemed to involve more on
multilateral relations and has expanded the cooperation into the finance, human
resources development, health and judicial matters. This has raised Japans concern
on the rise of China within the region especially towards ASEAN. This can deduced
from the level of leadership exchanges by China and Japan towards ASEAN. The
comparison of China and Japan leaderships exchanges with ASEAN is shown in
Figure 1.

Figure 1: Japan and China Leadership Exchanges With ASEAN.

Source: Lai Foon Wong 2007 (p. 400)

In addition to the leadership exchanges, China has set up a complete

mechanism in engaging ASEAN through dialogue cooperation.

Although China

started its official dialogue relations with ASEAN in 1996, but within 5 years China
managed to have a complete dialogue and cooperation mechanism to engage with
ASEAN. This enabled China to increase its multilateral dialogue and cooperation
through a systematic development phase from 1997 to 2001. The mechanism also

takes into consideration the aspects of human resource development, personnel and
cultural exchanges (Foon, 2013).

In the early 2000s, the spread and surge of Chinas investment,

industrialisation and economic growth has increase tremendously.

Chinas close

interaction and cooperation with the ASEAN countries has made Japan seems left
behind. Chinas trade volume has increased since 2000 at average rate of 12.4%
annually, while Japans trade decreased at average rate of 3% (Foon, 2013, p. 373).
Chinas active involvement with ASEAN in the economic sector is observed through
the increased trading volume shown in Table 1.
Table 1: Japan and China Trade with ASEAN in 1997 and 2006.
Japan
Export
Import
Total

1997
2006
42,009 (12.3%) 81,284 (10.8%)
71,264 (20.0%) 80,495 (12.3%)
113,273 (16.2%) 161,780 (11.5%)

China
1997
9,168 (2.7%)
13,483 (3.8%)
22,651 (3.2%)

2006
65,010 (8.7%)
74,950 (11.5%)
139,961 (10.0%)

Source: Sueo Sudo 2015 (p. 180).

Other than Chinas drastic economic development, Japan is also concerned on
several indicators that indicated Chinas assertiveness and aggressiveness action
within the region. These can be observed through the clash between Chinese fishing
boat and the Japanese coastguard in the disputed Senkaku Islands and Chinese
warship fleet sailed in Japans southern islands. In addition, China also observed to
act negatively after the Japanese arrested the fishing boat captain that rammed Japans
coastguard vessels. Among the actions were arresting several Japanese businessmen,
blocking imports from Japan, banning the export of rare earth to Japan and abandoned
the joint exploration of oil and gas in the East China Sea (Grant, 2012).
Chinas military build-up and modernisation, is another worrying aspect by the
Japanese. Based on Chinas defence budget from 2001 to 2010 has shown a rose by
189 percent compared to Japan rose only by 1.7 percent in the same period of time.
Looking at this trend, Chinas defence budget is expected to be five times bigger than
Japan by 2020. Currently Chinas warplanes and naval assets have been observed to

increase their patrol close to Japanese land and at the same time the steady
development around the South China Sea continue to progress. The increase in
Chinas defence budget and continuous modernisation of its navy and air force
capabilities will enable China to pursue its assertiveness within the region without
compromising the territorial dispute with its neighbour (Grant, 2012). Therefore
Japan need to ensure its diplomatic effort is enhanced in order to strengthen its ties
especially with the ASEAN maritime states. At the same time, Japan has to continue
developing its ties with China especially in economic and cultural aspects in order to
maintain the current friendly relations.
ABES APPROACH TOWARDS ENHANCED ENGAGEMENT
As PM Abe came into office in December 2012, his approach towards engagement
with ASEAN is initiated at very earlier stage of his administration. PM Abes first
official visit was to the ASEAN countries which is not a norm to a Japanese PM. This
diplomatic initiative towards ASEAN showed that Japans foreign policy priorities
have transformed compared to the previous DPJ PM concentrating on its immediate
neighbours. PM Abes completed his official visits to all ten ASEAN countries in five
separate trips.

His first trip started in January 2013 to Vietnam, Thailand and

Indonesia. Then, he continued his official visits to Myanmar on May 2013, followed
by Malaysia, Singapore and Philippines on July 2013, Brunei on October 2013 and
lastly to Cambodia and Laos on November 2013 (Ministry of Foreign Affairs Japan,
2014).
Throughout the official visit, PM Abe announced and emphasised on the new
ASEAN diplomacy implemented by Japan in engaging with AMS which is known as
Abe Doctrine. The doctrine consist of five principles formulated to lead diplomacy
towards ASEAN are (1) protection and promotion together with AMS of universal
values such as freedom, democracy and basic human rights, (2) ensure free and open
seas governed by laws and rules and welcome the US rebalancing presence in the
region, (3) promotion of trade and investment as well as flow of goods, capitals,
people and services through various economic partnership networks, (4) protection
and nurture of Asias diverse cultural heritages and traditions and (5) promotion of

exchanges among the young generations to foster mutual understanding (Miguel,

2013).
In line with the doctrine introduced, PM Abes also emphasised on the need to
strengthen the economic partnership with all the AMS.

The strengthening of

economic partnership is expected to be an important factor in ensuring both parties

development through the promotion of trade and investment. At the same time, Japan
will continue to assist the Mekong countries through grant aids and technical
assistance in reducing the development gap with other ASEAN countries. Meanwhile
it is important for both parties to cooperate in developing the infrastructure to
contribute towards revitalization of Japans strategy. PM Abes policy also includes
strategic diplomacy in ensuring the regions peace and prosperity which can be
achieved through strong relationship between both parties (Ministry of Foreign Affairs
Japan, 2014).
In addition to the Abe Doctrine being established, Japan and ASEAN remained
as indispensible economic partners within the region. Looking at todays globalised
environment, both parties economies are becoming interdependent based on the
growing cross border movement of people, goods, money, trade and information
within the region. In 2013, Japan has become the second largest non ASEAN investor
for ASEAN after the European Union (EU). This proves that Japan and ASEAN have
strong collaborative business relations based on 8,000 Japans companies operating in
the ASEAN region (Mission of Japan to ASEAN, 2015).
CONCLUSION

Since the establishment of ASEAN in 1967, Japan continues it engagement with

ASEAN based on the concept of economic diplomacy and became the first country to
emerge as a dialogue partner with ASEAN. The first dialogue was established in 1973
when both parties agreed to discuss the synthetic rubber issue which affected the
ASEAN natural rubber producers. Further dialogues conducted have created a strong
diplomatic push for Japan to develop strategic working policies towards ASEAN. To
date, four policies were established starting with Fukuda Doctrine in 1977, Takeshita

Doctrine in 1987, Hashimoto Doctrine in 1997 and Abe Doctrine in 2012. As a whole,
the Fukuda Doctrine has set the foundations for Japan-ASEAN relationships anchored
on a heart-to-heart diplomacy.
Chinas growing relations with ASEAN which started in 1990s was deemed
overtaking Japans in term of leadership exchanges, trade and investment with
ASEAN.

Chinas active engagement with ASEAN concentrated more towards

bilateral cooperation which involved political and economic perspectives.

The

leadership exchanges with ASEAN observed to maintain at higher pace compared to

Japan which gives ASEAN an alternative option in ensuring the continuous
development of the region. This has enabled China to improve the relations to include
multilateral dialogue and cooperation through systematic development. Meanwhile in
the economic sector observed a drastic increase in Chinas export and import to with
ASEAN from 1997 to 2006.
Observing the traditional bilateral economic interaction through trade and
ODA, Japan forebodes that the enhanced engagement with ASEAN is crucial as it is
moving towards a unified community. Therefore, Japan needs to maximise all efforts
to encourage cohesion and strengthens its capacity towards ASEAN in order to cope
with regional challenges through global rules and norms. Looking at how ASEAN
bears the huge economic potential, Japanese companies have started to increase their
investment towards improving the economic trends in the region. Japan can maximise
this opportunity to enhance ASEAN development for both parties economic direction
and regional stability.

By doing so, Japan is expected to sustain its economic

prosperity and continues the friendship and cooperation with AMS in line with the
Japan-ASEAN Friendship and Cooperation theme Share Vision, Shared Identity,
Shared Future.

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