Japan's changing conception of the ASEAN Regional Forum: from an optimistic liberal to a pessimistic realist perspective

Abstract

This article explores changes in Japan's conception of and policy toward security multilateralism1 in the Asia-Pacific region after the end of the Cold War with special reference to the ASEAN Regional Forum (ARF). It makes the observation that notwithstanding Japan's active role behind the establishment of the ARF in the early 1990s and continuing public expression of strong support for Asia-Pacific security multilateralism since that time, in actuality, Japan's enthusiasm for it has dwindled from the late 1990s onwards. This article argues that this has been due primarily to Japan's disappointing experiences in the ARF, evinced by its abortive efforts to promote meaningful cooperative security measures and the failings of multilateral security diplomacy in addressing its security concerns. Consequently, Japan's conception of regional security multilateralism has shifted from an optimistic liberal to a more pessimistic realist perspective from which the ARF can, at best, be seen as a venue contributing only to a minimal level of confidence building among regional countries or, to put it more cynically, ‘a talking shop’. This has made Japan's ARF policy more tentative and less energetic. Japan's enthusiasm has also been diluted by a number of internal and external constraints on ARF policy, including US misgivings about Japan's tilt toward regional security multilateralism, its domestic organizational limitations, growing dissent within the Japanese government over the value of security multilateralism, the lack of political support for bureaucratic initiatives and the unexpected frictions between bilateral and multilateral security approaches in Japan's overall security policy.