Thanks to Ukraine’s diplomatic efforts since the war’s inception, initial modest shifts in attitudes and assistance from foreign partners have given way to increasingly bold commitments. While Western neighbours have cautiously bolstered multilateral cooperation, a striking and unexpected surge of support has emerged from the Far East. Now, as the war with Russia enters its third year, a pivotal question arises: what underpins Japan’s robust backing of Ukraine?
Over the last century, Japan, a relatively small island nation, has ascended to global economic prominence, standing as the sole G7 member from the Indo-Pacific region. Historically, Tokyo’s involvement in Eastern European affairs has been limited, though it has maintained an enduring interest in the Black Sea, particularly through its partnership with GUAM. Yet, Japan’s engagement with Ukraine has steadily intensified over the past decade, beginning with Russia’s annexation of Crimea in 2014 and escalating dramatically with the onset of the full-scale invasion.
Despite the geographical distance, Japan and Ukraine have found a common cause, united by shared democratic values, a commitment to market economies, respect for international law, and, above all, a mutual dedication to the pursuit of peace.
Ukraine’s foremost partner in East Asia
Why is Japan now considered one of Ukraine’s most steadfast allies? Primarily, Japan has unequivocally affirmed its support for Ukraine’s sovereignty and territorial integrity, categorically condemning Russia’s aggression as a breach of international law. Within the context of political cooperation, Japanese officials consistently engage in high-level bilateral dialogues focused on security policy. Moreover, Japan endorses the Ukrainian peace formula and actively contributes to its implementation, bolstering diplomatic initiatives.
Japan has also emerged as a key player in imposing sanctions against Russia, recognising the critical need for these measures to escalate the cost of aggression and deter further military actions.
As early as March 2022, the Japanese government revised its Export Control Trade regulations to include specific amendments related to Russia and Belarus. These adjustments encompass asset freezes, financial and trade restrictions, limitations on equipment for oil refineries and dual-use goods, and export restrictions targeting military-related enterprises.
Furthermore, the Japanese government has initiated steps to gradually diminish its dependence on Russian oil imports, aiming to reduce reliance on Russia within the energy sector. It is essential to note that Japan, as an island nation, possesses very limited natural resources, making this shift all the more significant.
While Japan’s majority of mineral resources come from the Middle East, Australia, and the United States, the decision to impose sanctions on Russia was not straightforward, particularly given earlier plans to enhance energy imports from Russia through a direct gas pipeline. Nevertheless, over the past three years of war, Japanese imports of Russian raw materials have nearly halved.
In addition to these measures, Japan has welcomed over 2,500 Ukrainian refugees—an unprecedented response from a nation known for its stringent refugee policies, often counting annual acceptances on one hand. A bespoke support system has been established for Ukrainians, offering not only government protection but also pathways for entire workforce integration and access to substantial financial assistance for housing. Among developed nations, Japan stands out for having some of the most stringent policies regarding migrants. Thus, the acceptance of over two thousand Ukrainians, coupled with the organisation of an extensive array of assistance and social activities, sends a clear signal of Japan’s unwavering support for Ukraine.
The scope of initiatives in the realm of cultural and humanitarian assistance is considerable. In Tokyo, as well as in various other regions, a plethora of cultural events, exhibitions, and lectures are held each month, primarily orchestrated by the Embassy of Ukraine in Japan and the oldest Ukrainian NGO in the country, Krayany. The impetus for these numerous activities largely stems from local communities, organisations, and businesses, reflecting a profound interest among the Japanese populace in supporting Ukraine and contributing financially—even in the third year of the war.
Not with weapons but with yen
Unlike many of its counterparts, Japan is constrained by stringent arms export laws that preclude it from supplying lethal weaponry to Ukraine. Article 9 of Japan’s post-war pacifist constitution prohibits the maintenance of armed forces and engagement in military conflicts, while the ‘Three Principles of Transferring Defence Equipment’ imposes further restrictions. Nevertheless, these constraints have not hindered Japan’s provision of other forms of material and financial support.
Since March 2022, Japan has committed over $12 billion in financial, humanitarian, and ancillary aid to Ukraine, with $4.5 billion allocated for the year 2024 alone. This positions Japan as the fourth-largest bilateral donor to Ukraine, representing approximately 0.13% of its GDP. The financial aid encompasses emergency assistance, grants, loans, and debt relief, in addition to support for select UN programs for Ukraine.
Significantly, despite its stringent regulations on military exports, the Japanese government has adapted its procedures to expedite the provision of military equipment to the Ukrainian Armed Forces in response to Russia’s full-scale invasion. This represents a notable deviation from Japan’s traditional policies and underscores the depth of its commitment.
The principal categories of aid provided have encompassed helmets, bulletproof vests, minibuses for personnel transport, food supplies, military uniforms, protective suits for hazardous environments, communication devices, satellite phones, binoculars, tents, generators, lighting equipment, medications, food rations, and even reconnaissance drones. This roster illustrates the breadth of Japan’s support, which has remained robust since the first shipments in March 2022. The flow of diverse military assistance continues unabated, sourced from various channels—including government initiatives, local communities, corporations, and even individual Japanese citizens. These citizens have organised small-scale humanitarian drives to address specific needs, such as chemical heating pads for soldiers or essential clothing and supplies for displaced individuals.
From emergency aid to a long-term partnership
Throughout Russia’s full-scale war against Ukraine, Japan has maintained a steadfast presence in multilateral forums dedicated to supporting Ukraine. It has actively participated in key events such as the High-Level International Donor Conference in May 2022, as well as the Ukraine Recovery Conferences in July 2022 and June 2023. At the G7 summit in Hiroshima in May 2023, the recovery and reconstruction of Ukraine featured prominently on the agenda, signalling Japan’s commitment to the cause.
In February 2024, the Japan-Ukraine Conference on Promoting Economic Growth and Reconstruction was a crucial step in sustaining international support for Ukraine. The conference established a strong framework for cooperation between Japanese businesses and their Ukrainian counterparts, setting the stage for future economic and institutional partnerships. This initiative not only reinforced Japan’s long-term dedication but also reinforced its role in shaping Ukraine’s post-war recovery efforts.
The conference aimed to create frameworks for integrating the Japanese private sector into Ukraine’s recovery and reconstruction efforts, collaborating with domestic agencies and institutions such as JICA, JETRO, JBIC, and NEXI. The Japan International Cooperation Agency (JICA) has already engaged directly with Ukraine, focusing on areas like debris removal, infrastructure rebuilding, and civil servant training. JICA has also proposed leveraging its disaster recovery expertise, primarily to assist in the reconstruction of Ukrainian infrastructure and urban areas. Notably, Japan has previously supplied transformers, solar panels, and demining equipment, and in August, delivered 100 units of machinery and equipment for municipal enterprises in eastern Ukraine’s major cities.
The commitments from conference participants, grounded in three principles—inclusivity, partnership, and knowledge transfer—and five key actions—finalising a new Tax Convention, supporting Ukraine via international financial institutions, launching public-private partnership projects, opening a JETRO office in Kyiv, and relaxing visa requirements for Ukrainian nationals involved in bilateral projects—have been encapsulated in over 50 collaborative agreements with Japanese companies. This robust engagement marks a significant step in the ongoing partnership between Japan and Ukraine.
In the context of strengthening long-term bilateral ties, a pivotal development was the signing of the “Agreement on Support and Cooperation between Ukraine and Japan.” This landmark agreement outlines key areas of collaboration, including security and defence, humanitarian aid, and reconstruction, all while adhering to Japan’s stringent constitutional and legal constraints. It also addresses future cooperation in critical sectors such as cybersecurity, industrial partnerships, and counter-disinformation initiatives. A notable element of the agreement is its emphasis on holding Russia accountable for the damages inflicted upon Ukraine and its commitment to exploring avenues for compensation with international partners.
This agreement is instrumental in shaping the future trajectory and depth of Japan-Ukraine relations, highlighting Japan’s unwavering commitment to fortifying bilateral ties in the face of Russia’s ongoing aggression against Ukraine.
Japan’s perspective
A pivotal moment in Tokyo’s foreign policy emerged in December 2012, when Prime Minister Shinzo Abe redefined Japan’s global role with the introduction of the proactive peacekeeper concept (NRC – National Role Concept). This strategic shift was designed to position Japan as a staunch defender of international norms and societal interests, reinforcing its role as a key ally and partner to the United States and other democratic nations.
Although Japan extended some humanitarian and economic support to Ukraine following the 2014 crisis, Abe consistently underscored the importance of maintaining a collaborative relationship with Russia, advocating for “constructive engagement” on a range of issues. This stance was driven by Japan’s strategic economic concerns, including the need to diversify energy sources through the development of the Northern Sea Route, which further skewed Tokyo’s alignment towards cooperation with Moscow.
Prime Minister Fumio Kishida’s administration largely inherited Shinzo Abe’s approach, including his relatively accommodating stance towards Russia. However, Russia’s full-scale invasion of Ukraine provided Kishida with an opportunity to shift Japan’s foreign policy priorities, focusing on halting close interactions with the Russian government. This realignment has also paved the way for re-evaluating Japan’s national peacekeeping concept, aligning it more closely with its foreign policy actions towards Ukraine.
Amid these shifts, the changing geopolitical landscape—particularly China’s rising assertiveness regarding Taiwan—has highlighted Japan’s deepening commitment to Ukraine. This commitment aligns with Tokyo’s broader goal of strengthening an international order based on rules and norms, a cornerstone of Prime Minister Kishida’s Vision for Peace.
Japan’s support for Ukraine since 2022 extends beyond mere aid to a single nation; it is a strategic move within a broader regional framework designed to solidify its role in maintaining peace and stability. This shift is particularly significant in light of the rising challenges posed by China and the potential repercussions for Taiwan and the broader dynamics of regional security.
The burgeoning partnership between Japan and Ukraine has come at a pivotal moment for both countries. While Japan’s involvement marks several notable “firsts,” these developments are not entirely unforeseen. Instead, they represent a crucial step in shaping Japan’s national foreign policy identity, which has evolved over many years. Notably, Japan and Ukraine are united by core values—freedom, democracy, the rule of law, respect for international norms, and human rights. As political and economic ties deepen, Japan is poised to continue serving as a key advocate for Ukraine in Asia.
