Did Japan just ‘downgrade’ China in its Diplomatic Bluebook?

In Japan’s Diplomatic Bluebook released in April 2026, the relationship with China is described as having shifted from the traditional “one of Japan’s most important bilateral relations” to “an important neighbouring country”. In response, China’s Ministry of Foreign Affairs strongly protested, stating that Japan has “breached (its) commitments, which erodes the political foundation of China-Japan relations and challenges the postwar international order”.

Looking at Diplomatic Bluebook 2026, China is described as “an important neighbouring country, and precisely because there are various concerns and issues, we will continue to communicate and respond calmly and appropriately from the perspective of our national interests”. In the 2025 version, the line is: “Relations with neighbouring China are one of Japan’s most important bilateral relations, and the two countries have close economic ties and people-to-people and cultural exchanges”.

Japan had used this phrase “most important bilateral relations” to describe China-Japan relations for about a decade. Since the phrase used for such a long time was no longer used in the 2026 edition, it might indeed be viewed as a “downgrade”, or a shift in its perception of China.

Equal footing as South Korea

However, doubts remain. First, in both this year’s and last year’s Bluebook, South Korea is described as “an important neighbouring country with which Japan should cooperate as partners in dealing with various issues of the international community”. In other words, while China was tagged “the most important bilateral relationship” and South Korea as “an important neighbouring country” in 2025, both China and South Korea became “important neighbouring countries” in 2026.

It is questionable whether making China equal to South Korea — a US ally and positioned as a like-minded country in the same Bluebook — is truly a downgrade. In the first place, the phrase “an important neighbouring country” seems to have been used for South Korea in the Bluebook since 2020 (prior to that, there was also the expression “the most important neighbouring country”). This phrase has been used since the end of the Shinzo Abe administration and has been regarded as an indicator of Japan’s emphasis on South Korea.

This time, it can also be seen that the relationships with China and South Korea have converged on the phrase, “an important neighbouring country”. Note that “one of the most important bilateral relationships” for China seems to have been first used in 2016. While it was used for almost ten years, the phrase “an important neighbouring country” came to be used for South Korea, and it can be seen that the expressions for China and South Korea have been aligned in the 2026 edition.

Second, might the significant difference rather lie in the words used alongside “an important neighbouring country”? In this year’s Bluebook, South Korea is described as “an important neighbouring country with which Japan should cooperate as partners in dealing with various issues of the international community”. For China, it is “an important neighbouring country, and precisely because there are various concerns and issues, we will continue to communicate and respond calmly and appropriately from the perspective of our national interests”. It should be noted that there is a difference between China and South Korea here. However, the expression used for China this year does not significantly conflict with past expressions. In other words, it cannot be read as indicating a major shift in Japan’s China policy.

Not the first time phrase was used

The phrase “an important neighbouring country” is not used for Russia. However, while the words used for Russia largely overlap with the phrase used for China — “we will continue to communicate and respond calmly and appropriately from the perspective of our national interests” — the relationship with Russia is expressed as being more severe than with China, as suggested by “many pending issues that Japan and Russia must resolve”.

Fourth, this year’s Bluebook is not the first time the phrase “an important neighbouring country” was used to describe China. In her policy speech on 24 October 2025, shortly after taking office, Prime Minister Sanae Takaichi stated: “With China, an important neighbouring country for Japan, it is necessary to establish a constructive and stable bilateral relationship.” She had already been using the phrase “an important neighbouring country” since this time.

Why object only now?

One week later, on 31 October 2025, a Japan-China Summit Meeting was held in South Korea. If the expression “an important neighbouring country” were inherently problematic, this would not have taken place.

Furthermore, in February 2026, following the Lower House election, Takaichi said in her policy speech: “With regard to China, it is the consistent policy of the Takaichi Cabinet to comprehensively advance a Mutually Beneficial Relationship Based on Common Strategic Interests and to build a constructive and stable bilateral relationship. As China is an important neighbouring country, and given the various pending concerns and challenges between us, we will continue communication and respond calmly and appropriately from the perspective of our national interests.” She used “an important neighbouring country” here as well.

Why was the phrase “an important neighbouring country” in this year’s Bluebook suddenly framed as a “downgrade”, so that it became a major issue? It is the same wording used for like-minded South Korea (albeit not for Russia), and Takaichi had been using the phrase since late October 2025, even before the Japan-China Summit Meeting.

Can we go so far as to conclude that the Japanese government has “downgraded” China? And why make it an issue only after April 2026? We may need to consider these questions carefully.

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