Photo/Illutration An Abukuma-class escort vessel of the Maritime Self-Defense Force (Provided by the Maritime Self-Defense Force)

Japan is looking into the feasibility of exporting decommissioned escort ships to Southeast Asian nations, particularly the Philippines, and perhaps Indonesia and Vietnam, to bolster regional security cooperation and counterbalance China’s growing maritime presence.

However, the initiative faces legal and policy challenges due to the country’s pacifist-influenced arms export regulations. The government hopes to get around these hurdles by removing the lethal armaments or reinterpreting the existing rules. 

At the heart of the proposal is the potential transfer of Abukuma-class destroyer escort ships to the Philippines.

Six vessels equipped with anti-ship missiles that have been in service for over 30 years are being phased out by the Maritime Self-Defense Force.

During a bilateral meeting in Seoul on Sept. 9, Defense Minister Gen Nakatani and his Philippine counterpart, Gilberto Teodoro, discussed Manila’s interest in acquiring the ships.

Nakatani acknowledged the complexity of the issue, but made clear the government would continue to examine the matter and try to overcome domestic challenges.

Japan’s arms export policy, governed by the Three Principles on Transfer of Defense Equipment and Technology, currently restricts exports to five categories: rescue, transport, warning, surveillance and minesweeping.

Due to their ability to inflict lethal harm, escort ships fall outside these categories.

However, exceptions exist for equipment jointly developed or produced with partner nations. For instance, Japan’s enhanced Mogami-class frigate was selected for Australia’s naval upgrade in August under a joint development framework.

To navigate these restrictions, Japanese officials are considering classifying the export of modified Abukuma-class ships to the Philippines as a form of joint development.

This would involve customizing the vessels with Philippine-requested equipment and communication systems.

Indonesia and Vietnam have also emerged as potential recipients, aligning with Japan’s 2022 defense build-up plan that encourages transfers to like-minded countries.

Despite the strategic aims of the project, one legal expert urged caution.

Constitutional scholar Miho Aoi of Gakushuin University in Tokyo was uncomfortable with vague definitions of “joint development,” saying the term had the potential to trigger an unchecked expansion of arms exports.

Within the government, some officials advocate making revisions to the Three Principles to more accurately reflect geopolitical realities so exports of escort vessels can go ahead.

A report released in September by an expert panel of the Defense Ministry echoed this view in calling for a pragmatic approach to the existing five categories to build public support for broader transfers.

Nonetheless, revising the Three Principles remains politically challenging. Despite the seemingly simple name, the principles are a set of complex and ambiguously defined policies with expansive guidelines.

A previous attempt in December 2023 to overhaul the principles faced internal resistance within the ruling coalition.

The Philippines, which is locked in a territorial dispute with China in the South China Sea, is eager to strengthen its naval capabilities.

Philippine Navy Vice Adm. Jose Maria Ambrosio Ezpeleta expressed interest in acquiring up to three Abukuma-class escort ships during a Senate committee hearing on Oct. 7.

However, he noted that the transfer was not a done deal and that some weapons systems may be removed due to Japanese legal constraints.

(This article was written by Toshiya Obu in Manila and Mizuki Sato in Tokyo.)

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