Tokyo MoU: Port State Control in the Asia-Pacific

The Tokyo MoU coordinates port State control for 22 Asia-Pacific Authorities: the New Inspection Regime, detention, performance lists, APCIS and joint CICs.

The Tokyo Memorandum of Understanding on Port State Control in the Asia-Pacific Region (Tokyo MoU) is the administrative arrangement under which 22 maritime Authorities around the Pacific and East Asia inspect foreign merchant ships in their ports against the IMO and ILO conventions, detain those that are substandard, and share every result through one database. Sixteen Authorities signed it in Tokyo on 1 December 1993, China and Vanuatu signed in Beijing on 11 April 1994, and it came into operation on 1 April 1994. The current text includes the 23rd amendments, adopted on 14 November 2024 and in effect since 1 July 2025.

The Tokyo MoU carries out more than twice as many inspections as the Paris MoU. The Tokyo MoU 2025 Annual Report records 35,546 initial inspections of 19,980 individual ships in 2025 and 1,255 detentions, a detention rate of 3.53 percent, against 16,474 inspections by the Paris MoU in the same year. Targeting is set by the New Inspection Regime (NIR), applied since 1 January 2014, whose Ship Risk Profile decides how soon each ship falls due. The results feed public performance lists for flags, recognized organizations and ISM companies.

What the Tokyo MoU is and how it takes effect

The Tokyo MoU is a regional form of port State control : the inspection of foreign ships in a State’s ports for compliance with the conventions that State is party to. Its preamble states that the Memorandum is “not a legally binding document”. It commits the member Authorities to a common procedure: the same targeting rules, the same inspection and detention practice, and one shared record.

The detention itself rests on national law. Each port State gives effect to the conventions it has ratified, and the inspector’s power to stop a ship comes from that legislation, not from the Memorandum. There is no Asia-Pacific counterpart to the EU Port State Control Directive , which in Europe turns the Paris regime into binding law for EU Member States, so every Tokyo MoU member applies the arrangement through its own statutes.

Section 1.3 applies the regime to foreign merchant ships “calling at a port of its Authority, or anchored off such a port”. An anchorage call is inside scope. A ship under the port State’s own flag is not a Tokyo MoU inspection; it is checked through flag State survey.

Section 1.4 sets the regional target: the Committee “will endeavour to attain a regional annual inspection rate of 80% of the total number of ships operating in the region.” In 2025 the rate reached 66 percent of 30,046 individual ships, according to the 2025 annual report.

Tokyo MoU signing and entry into operation, 1993 and 1994

The Memorandum was signed at Tokyo on 1 December 1993 by the maritime Authorities of 16 States and territories: Australia, Canada, Fiji, Hong Kong (China), Indonesia, Japan, the Republic of Korea, Malaysia, New Zealand, Papua New Guinea, the Philippines, the Russian Federation, Singapore, Solomon Islands, Thailand and Viet Nam. China and Vanuatu signed at Beijing on 11 April 1994, bringing the signatories to 18.

Signature and membership are separate steps. Under Section 8.7 the Memorandum was open for acceptance from 1 April 1994, and it takes effect for each Authority on the date that Authority notifies its acceptance. The earliest acceptances were dated 1 April 1994 (Japan, Malaysia, New Zealand and Papua New Guinea), which is the date the Tokyo MoU gives as its start of operation.

The other founding signatories followed over five years:

AuthorityAcceptance
Japan, Malaysia, New Zealand, Papua New Guinea1 April 1994
Republic of Korea7 April 1994
Singapore9 April 1994
Australia, China, Hong Kong (China)11 April 1994
Canada15 April 1994
Vanuatu26 April 1994
Russian Federation1 April 1995
Indonesia1 April 1996
Thailand1 May 1996
Fiji1 June 1996
Philippines9 September 1997
Viet Nam1 January 1999

Solomon Islands is the exception. It signed in 1993 and, in the Memorandum’s footnote, has “Not yet accepted the Memorandum”. It participates as an observer, which is why a count of signatories (18) and a count of founding members differ by one.

The Paris MoU had been running for almost 12 years when the Tokyo text was agreed: it was signed on 26 January 1982 and took effect on 1 July 1982. The Asia-Pacific Memorandum follows the same architecture of a committee, a secretariat, a shared database and a list of relevant instruments.

Tokyo MoU member Authorities, observers and geographic scope

The Tokyo MoU has 22 member Authorities in 2026. Five joined after the founding signatories, by Committee decision under Section 8.2: Chile on 10 June 2002, the Marshall Islands on 28 October 2013, Peru on 5 October 2015, Panama on 14 October 2019 and Mexico on 30 October 2023.

The members span four continents and some of the largest flag registries. Panama and the Marshall Islands are both member Authorities and flags that the other members inspect and score on the performance list.

Initial inspections by Authority in 2025, from Table 2 of the 2025 annual report:

AuthorityInitial inspections 2025
China9,894
Japan4,014
Indonesia3,736
Viet Nam3,076
Australia2,769
Philippines1,941
Republic of Korea1,876
Peru1,554
Malaysia1,184
Russian Federation869
Thailand822
Chile767
Canada640
Hong Kong (China)603
Mexico564
Singapore528
New Zealand303
Panama183
Papua New Guinea175
Fiji32
Marshall Islands12
Vanuatu4

China alone carried out 28 percent of the regional total. Four members report only part of their coastline: for Canada, Mexico, Panama and the Russian Federation the data covers “only the Pacific ports”. Australia’s inspection data is also provided to the Indian Ocean MoU.

Observers

Seven Authorities hold observer status: Cambodia, the Democratic People’s Republic of Korea, Macao (China), Samoa, Solomon Islands, Tonga and the United States Coast Guard . Ten organizations also observe: the IMO, the ILO, the Abuja, Black Sea, Caribbean, Indian Ocean, Mediterranean, Paris and Riyadh MoUs, and the Viña del Mar Agreement.

Joining, co-operating status and withdrawal

Annex 1 of the Memorandum sets the membership route. An Authority normally spends at least 3 years as a co-operating member, without a vote and with read-only access to the inspection database, before the Committee admits it as a full member. No Authority holds co-operating status at present.

Membership can be reviewed. Annex 1 lists the triggers for an assessment, among them failure to attend three consecutive Committee meetings. An Authority may withdraw on 60 days’ notice (Section 8.4), and the Committee may revoke membership by unanimity, excluding the Authority concerned (Section 8.5).

Instruments enforced by Tokyo MoU inspection

A Tokyo MoU inspector checks a ship against the relevant instruments in Section 2.1 of the Memorandum, and only those in force and binding on the inspecting Authority’s State (Section 2.4). The list has 15 entries. The entry-into-force dates below are those tabulated in the Tokyo MoU 2025 annual report.

Relevant instrumentIn force
International Convention on Load Lines , 196621 July 1968
Protocol of 1988 to the Load Lines Convention3 February 2000
SOLAS 197425 May 1980
Protocol of 1978 to SOLAS1 May 1981
Protocol of 1988 to SOLAS3 February 2000
MARPOL 73/78, as amended by the 1997 Protocol2 October 1983
STCW 197828 April 1984
COLREG 197215 July 1977
Tonnage Convention 196918 July 1982
ILO Merchant Shipping (Minimum Standards) Convention, 1976 (No. 147)28 November 1981
Maritime Labour Convention, 200620 August 2013
AFS Convention 200117 September 2008
Protocol of 1992 to the Civil Liability Convention30 May 1996
BWM Convention 20048 September 2017
Bunkers Convention 200121 November 2008

The ISM and ISPS Codes are not separate entries. The ISM Code is SOLAS Chapter IX and the ISPS Code is enforced through SOLAS Chapter XI-2, so both are inspected under SOLAS; the 2025 annual report counts 1,061 ISPS deficiencies separately from the 90,168 safety and pollution deficiencies.

Two instruments on the Paris MoU list are absent here: the Nairobi Wreck Removal Convention 2007 and the Hong Kong Convention on ship recycling. Neither is a Tokyo MoU inspection item.

No more favourable treatment and structural limits

Three rules in Section 2 shape what an inspector may demand. Section 2.5 applies the no more favourable treatment principle: a ship flying the flag of a State that is not party to a convention is inspected so that it receives no advantage from that. Section 2.6 bars an Authority from applying higher standards to a foreign ship than it applies to its own flag.

Section 2.2 limits retroactive structural demands. Under ILO Convention 147 no structural change is required for a ship whose keel was laid before 1 April 1994, and under MLC 2006 none for a keel laid before 20 August 2013. The bar covers structural change only, so a ship with a keel laid before 20 August 2013 is still inspected for seafarer employment agreements, wages and the other MLC 2006 conditions.

Tokyo MoU New Inspection Regime and the Ship Risk Profile

The New Inspection Regime is the targeting system of the Tokyo MoU, applied since 1 January 2014 and set out in Annex 2 of the Memorandum. It gives every ship in the Asia-Pacific Computerized Information System (APCIS) a Ship Risk Profile of High, Standard or Low Risk, and that profile sets the window after which the ship falls due for inspection.

A ship is a High Risk Ship with 4 or more weighting points. The Annex 2 table:

ParameterCriterionPoints
Type of shipChemical tanker , gas carrier , oil tanker , bulk carrier (including a woodchip carrier treated as a bulk carrier under SOLAS Chapter XII), passenger ship or container ship2
Age of shipOver 12 years1
FlagLow performance1
Recognized organizationLow or Very low performance1
CompanyLow or Very low performance, or no inspection in the last 36 months2
DeficienciesEach inspection with more than 5 deficiencies in the last 36 months1
Detentions3 or more detentions in the last 36 months1

Two readings of the table recur in practice. Container ships score 2 as a type in Tokyo, so a container ship over 12 years old with a Low-performing company already reaches 5 points. And a single detention adds nothing on its own; the detention parameter scores only at three detentions in 36 months, while each dirty inspection (more than 5 deficiencies) scores a point.

A Low Risk Ship must meet all of the following: a flag on the High performance list; an RO recognized by at least one Tokyo MoU Authority and of High performance; a company of High performance; every inspection in the last 36 months with 5 or fewer deficiencies, and at least one inspection in that period; and no detention in 36 months. Every ship that is neither High nor Low Risk is a Standard Risk Ship. The 2025 inspections split 40.84 percent High Risk, 45.59 percent Standard Risk and 13.37 percent Low Risk.

The IMO audit parameter was deleted from the profile by the amendments adopted at PSCC35 in November 2024, effective 1 July 2025, which leaves the seven parameters above.

Company performance

The ISM company performance is computed daily over a rolling 36 months from two indices: a detention index and a deficiency index, each compared with the Tokyo MoU average. Deficiencies relating to the ISM Code weigh 5 points each and all others 1 point. The averages in use are a Detention Index of 3.84 and a Deficiency Index of 2.64, effective until 30 June 2027. Unlike the RO list, company performance has no minimum number of inspections.

A company with no inspection in 36 months is treated like a Low performer for the Ship Risk Profile and scores 2 points. A newly acquired ship in a company new to the region therefore enters the profile with a penalty.

Tokyo MoU inspection windows and priority

Annex 2 Table 2 turns the Ship Risk Profile into an inspection window counted from the ship’s last inspection in the region:

Ship Risk ProfileWindow after last inspection
High Risk Ship2 to 4 months
Standard Risk Ship5 to 8 months
Low Risk Ship9 to 18 months

Inside the window a ship is Priority II: it “may be inspected … if no higher priority ship … is available”. Once the window closes it is Priority I, and “Where practical, ships are to be inspected when the time window has closed.” A Tokyo MoU Low Risk Ship can be due after 9 months, which is shorter than the 10 to 12 months the Paris MoU sets for its Standard Risk Ships.

Overriding priority

Section 3.3.2 of the Memorandum lists eight grounds that make a ship an overriding priority, regardless of its window:

  1. a report or notification from another Authority;
  2. a report or complaint by the master, a crew member or any person or organization with a legitimate interest in the safe operation of the ship, shipboard living and working conditions or the prevention of pollution, unless the Authority considers it manifestly unfounded;
  3. a ship allowed to leave on condition that deficiencies are rectified, on expiry of the period set;
  4. a ship reported by pilots or port authorities;
  5. a ship carrying dangerous or polluting goods that has failed to report the required information;
  6. a ship that left without complying with detention conditions (Section 3.9);
  7. a ship “intentionally choosing a particular port for inspection in order to obtain a favourable inspection result”;
  8. categories of ship identified by the Committee.

The seventh ground addresses port shopping. A ship that calls at a quieter port to collect a clean inspection record is itself a reason to inspect it.

Inspection conduct

The Memorandum sets the general framework and leaves the procedural detail to the IMO standard. IMO resolution A.1206(34), Procedures for Port State Control, 2025 , adopted on 3 December 2025, sets out how a port State control officer conducts the initial inspection, the clear grounds test for a more detailed inspection, and the detention criteria that regional regimes build on. Under Section 3.6 of the Memorandum an inspection may be suspended where the ship is found to be substandard overall. Section 3.13 requires Authorities to avoid undue delay to the ship.

Follow-up inspections check rectification of earlier deficiencies. In 2025 Tokyo MoU Authorities carried out 12,607 follow-ups on top of the 35,546 initial inspections, for 48,153 inspections in all, and 1,383 follow-ups (10.97 percent) were done remotely.

Tokyo MoU detention, repair port and appeal

A Tokyo MoU Authority detains a ship when inspection finds deficiencies that are “clearly hazardous”, under Section 3.7 of the Memorandum. The flag State is notified of every detention, and where the grounds include MLC 2006 deficiencies the Authority also notifies the appropriate shipowners’ and seafarers’ organizations.

The detention holds until the deficiencies are rectified. Section 3.8 lets the ship proceed to the nearest appropriate repair port where rectification is impossible in the port of inspection, on conditions agreed with the flag State. If the ship sails without meeting the conditions, Section 3.9 applies: it is detained at any port of a member Authority until the company proves full compliance.

Where detainable deficiencies were found in 2025

The 2025 annual report ranks the detainable deficiencies. Fixed fire-extinguishing installations led with 215 detainable deficiencies, followed by ISM (200) and lifeboats (152). All three are core SOLAS items: fire protection under SOLAS Chapter II-2 , the ISM Code under Chapter IX, and life-saving appliances under Chapter III .

Across all deficiencies, not only detainable ones, four categories accounted for 53 percent of the 90,168 recorded in 2025:

Deficiency category2025 deficiencies
Fire safety18,020
Life saving appliances11,818
Working and living conditions9,108
Safety of navigation8,936

Deficiencies are recorded against five-digit deficiency codes grouped under two-digit main categories, among them 01 Certificates and documentation, 07 Fire safety, 10 Safety of navigation, 11 Life saving appliances, 14 Pollution prevention (ballast water at 148xx), 15 ISM and 18 Labour conditions. The current code list is dated 25 December 2025. Safety of navigation findings are checked against SOLAS Chapter V , including the ECDIS and AIS carriage rules.

Appeal and the detention review panel

Section 3.15 preserves the shipowner’s right of appeal under the port State’s national law, and an appeal does not suspend the detention. Complainants are protected: Section 3.14 keeps the identity of a person who reports a deficiency confidential.

The Tokyo MoU also runs a detention review . A flag State, or the RO acting on its behalf, may ask the Secretariat to review a detention “within either 120 days or 4 months (whichever is longer) from the date of release”. The request is not available where the national appeal has been used. A panel of three Authorities, chosen in alphabetical order and excluding the port State and the flag State, considers the case. Its findings are “not binding” and cannot ground a claim for compensation. The PSCC37 press release reports one review case since the previous Committee, in which the detention was upheld.

Tokyo MoU refusal of access and banning

The Tokyo MoU has no banning regime. The Memorandum contains no refusal-of-access provision, which is a difference from the Paris MoU, whose Section 4 refuses access to ships detained repeatedly under Grey or Black flags and to ships that skip a directed repair yard.

The issue is on the Committee’s agenda. At PSCC35 in November 2024 the Committee “agreed to explore the possibility for banning under-performing ships”. At PSCC37 in September 2026 it discussed “a common framework to support Member Authorities that are considering national legislation to prohibit certain ships from entering their ports”. That framework would support national bans, not create an MoU-wide one, and neither step has produced an adopted text.

Under-performing ships

What the regime has instead is a published list. A ship detained three or more times by Tokyo MoU Authorities in the previous 12 months is an under-performing ship. The list is published monthly, and listed ships are subject to more frequent inspection. In 2025 there were 222 listings involving 52 ships, according to the 2025 annual report. The same three-detention count, measured over 36 months, adds one point to the Ship Risk Profile.

Tokyo MoU flag performance list

The Tokyo MoU flag performance list ranks flags into High, Medium and Low performance on three years of inspection and detention data. The list valid from 1 July 2026 to 30 June 2027 uses 2023 to 2025 data and ranks 66 flags: 32 High, 19 Medium and 15 Low.

The tier names changed on 1 July 2025. Amendments adopted at PSCC35 renamed the White, Grey and Black lists High, Medium and Low performance. The list published in the 2024 annual report, on 2022 to 2024 data, was the last under the colour names, so an older document that refers to the Tokyo MoU Black List now points to the Low performance list.

How the tiers are calculated

The method is the binomial calculation also used by the Paris MoU for its White, Grey and Black List . The detention count of each flag is compared with a limit derived from an allowable detention rate of 7 percent at a significance level of z = 1.645, and the distance from that limit is expressed as an excess factor, moving in 3 percent steps. A flag needs at least 30 inspections over the three years to be listed. A negative excess factor is better than the limit; a positive one is worse.

The spread in the 2026 list runs from Gambia at the bottom, excess factor 6.57, to China at the top, -2.41. The other flags on the Low performance list are Saint Kitts and Nevis, Cameroon, Togo, Tanzania, Sao Tome and Principe, Palau, Iran, the Cook Islands, Sierra Leone, the Comoros, Mongolia, Sint Maarten, Djibouti and Belize. The report annotates Sint Maarten with a reference to IMO Circular Letter No.5019 of 20 May 2025 on fraudulent registration .

Among the large open registries, Panama sits on the High performance list on 26,416 inspections over the period, excess factor -0.75, with Liberia at -1.08 and the Marshall Islands at -1.36. The Russian flag is on the Medium performance list at 0.03.

A Low performance flag adds 1 point to every ship’s risk profile. It does not make a ship High Risk alone: a ship of a non-risk type under 12 years old, with good company and RO ratings, stays Standard Risk under a Low flag.

Recognized organization performance list

The recognized organization list rates the class societies and other bodies that issue statutory certificates on behalf of flag States. The list valid from 1 July 2026 rates 30 ROs: 16 High, 11 Medium and 3 Low performance. The three Low performers are Cosmos Marine Bureau, Union Bureau of Shipping and Asia Shipping Certification Services. The calculation uses P = 2 percent and Q = 1 percent and needs more than 60 inspections in the period.

The ROs on the list include the classification societies of the International Association of Classification Societies and smaller non-IACS bodies. For a shipowner the practical point is Annex 2: a Low or Very low performance RO costs 1 point on the Ship Risk Profile, and an RO not recognized by any Tokyo MoU Authority removes the ship from Low Risk eligibility.

The RO method is being replaced. PSCC35 approved a “deterministic method” for flag and RO performance, and PSCC36 decided to harmonize both methods with the Paris MoU from 1 January 2028. Data collection under the new RO method starts on 1 January 2027, and the first list calculated under it is used from 1 July 2028.

Company performance lists

The Tokyo MoU published company performance lists as a trial in 2025. From 1 January 2026, by decision of PSCC36, they are official and published quarterly.

APCIS and public Tokyo MoU inspection data

The Asia-Pacific Computerized Information System (APCIS) is the Tokyo MoU inspection database. Section 6.6 of the Memorandum locates it “in the Russian Federation”, and the information centre runs in Moscow “under the auspices of the Ministry of Transport of the Russian Federation”. Every inspection by a member Authority is entered in APCIS, and the system computes each ship’s risk profile and inspection window from that record.

APCIS plays the role that THETIS plays for the Paris MoU, and the two are separate systems.

Results are public. The Tokyo MoU publishes inspection and detention data on its website, including detention data and the monthly under-performing ships list, and supplies inspection data to IMO GISIS and to Equasis , the public ship safety database used by charterers and vetting departments. A co-operating member has read-only APCIS access and cannot enter inspections.

Tokyo MoU Concentrated Inspection Campaigns

A concentrated inspection campaign (CIC) is a three-month focus on one area of compliance, run alongside normal port State control inspections with a standard questionnaire. Since 2021 every Tokyo MoU CIC has been run jointly with the Paris MoU.

YearCIC topicJoint with Paris MoU
2012Fire safety systemsYes
2013Propulsion and auxiliary machinerynot stated
2014STCW hours of restnot stated
2015Crew familiarization for enclosed space entrynot stated
2016Cargo securing arrangementsnot stated
2017Safety of navigationnot stated
2018MARPOL Annex VInot stated
2019Emergency systems and proceduresnot stated
2021Stability in generalYes
2022STCWYes
2023Fire safetyYes
2024Crew wages and seafarer employment agreements (MLC 2006)Yes
2025Ballast water managementYes
2026Cargo securing of cargo units and cargo transport unitsYes, 1 September to 30 November 2026
2027Enclosed space entryYes
2028Safety of navigation, passage planningAgreed at PSCC37; Paris MoU invited

No CIC is listed for 2020. The 2016 cargo securing campaign ran from 1 September to 30 November 2016 and was a Tokyo MoU campaign; the Paris MoU ran its MLC 2006 campaign that year.

Results of the 2024 and 2025 campaigns

CampaignInspections in periodWith CIC questionnaireCIC-related detentions
2024 Crew wages and SEAs8,1346,58020 (0.3 percent)
2025 Ballast water management9,2446,930 (74.96 percent)30 (0.43 percent)

In the 2025 campaign the 30 ballast water detentions sat among 184 detentions for all reasons in the period, a rate of 2.66 percent. The campaign covered ballast water management systems and the ballast water records required by the BWM Convention.

The 2026 cargo securing campaign

The 2026 CIC covers the securing of cargo units and cargo transport units and runs from 1 September to 30 November 2026 in both regions. The subject area is the ship’s Cargo Securing Manual and its cargo securing and lashing systems , checked under the same questionnaire in the Tokyo and Paris MoU regions for the three months.

Focused inspection campaigns

Alongside the CICs, the Tokyo MoU ran focused inspection campaign (FIC) trials in 2025 on fire safety, pilot transfer arrangements and the EPIRB, plus an FIC on CLC certificates. Pilot transfer arrangements are the subject of the pilot ladder rules in SOLAS Regulation V/23, and the EPIRB check sits under the GMDSS carriage rules.

Tokyo MoU in figures, 2015 to 2025

The inspection series in the 2025 annual report shows volume falling in 2020 and 2021 and exceeding the 2019 level from 2024:

YearInitial inspectionsDetentionsDetention rate
201531,4071,1533.67%
201631,6781,0903.44%
201731,3159413.00%
201831,5899342.96%
201931,3729833.13%
202019,4164932.54%
202122,7325262.31%
202224,8947252.91%
202330,8871,3344.32%
202432,0541,1893.71%
202535,5461,2553.53%

Inspections fell 38 percent between 2019 and 2020, from 31,372 to 19,416, and the 30,887 of 2023 were still below 2019. The 2023 detention rate of 4.32 percent is the highest in the series, and 2025’s 35,546 inspections are the highest volume.

In 2025, 23,230 inspections recorded at least one deficiency, and the 1,255 detained ships flew 73 flags. The 2024 figures for comparison: 18,655 individual ships, 107 flags, 77,526 deficiencies and detentions under 67 flags.

Tokyo MoU and the Paris MoU compared

The Tokyo and Paris MoUs share a design and differ on four points that change what a shipowner experiences: legal force, the windows, the list method’s naming, and banning.

Tokyo MoUParis MoU
Signed1 December 1993, Tokyo26 January 1982, Paris
Members22 Authorities28 signatories, 27 active (Russian Federation suspended 20 May 2022)
Binding forceNational law of each Authority onlyEU Directive 2009/16/EC for EU States; national law elsewhere
Targeting since1 January 20141 January 2011
High Risk window2 to 4 months5 to 6 months
Standard Risk window5 to 8 months10 to 12 months
Low Risk window9 to 18 months24 to 36 months
Flag tiersHigh, Medium, Low performanceWhite, Grey, Black
BanningNone in the MemorandumSection 4 refusal of access
DatabaseAPCIS, MoscowTHETIS, hosted by EMSA
2025 inspections35,54616,474
2025 detention rate3.53%4.18%

The two Secretariats attend each other’s Committees; the Tokyo MoU Secretariat attended Paris PSCC58 in Malmö from 26 to 30 May 2025. The two regimes held the 3rd Joint Ministerial Conference in Vancouver in May 2017, which adopted the declaration “Safeguard Responsible and Sustainable Shipping”. The CICs have run jointly every year since 2021, and the flag and RO methods converge from 1 January 2028.

Tokyo MoU and the other regional regimes

Port State control is organized in nine regional regimes, according to the Tokyo MoU 2025 annual report: the Tokyo and Paris MoUs, the Abuja, Black Sea, Caribbean, Indian Ocean, Mediterranean and Riyadh MoUs, and the Viña del Mar Agreement for Latin America. All eight other regimes are Tokyo MoU observers. They are described together in the article on regional port State control memoranda .

Membership overlaps. Canada is a signatory of both the Tokyo and Paris MoUs, and so is the Russian Federation, which remains an active Tokyo MoU member while its Paris MoU membership has been suspended since 20 May 2022. Australia supplies its inspection data to the Indian Ocean MoU as well as to APCIS. The United States Coast Guard is a Tokyo MoU observer Authority.

IMO resolution A.1206(34) gives the common procedures, but each MoU sets its own targeting, lists and database.

Tokyo MoU governance: the Port State Control Committee and the Secretariat

The Port State Control Committee, made up of the member Authorities, is the Tokyo MoU’s governing body. It meets once a year (Section 6.2), adopts amendments, admits members and approves CICs. Amendments need a two-thirds majority and are deemed accepted after 6 months, taking effect 60 days later unless the Committee decides otherwise (Section 7.1).

Recent meetings have rotated among the members:

MeetingPlaceDatesMain outcomes
PSCC35Incheon11 to 14 November 202423rd amendments; tier renaming and IMO audit parameter deletion, effective 1 July 2025; agreed to explore banning; guidelines for pre-inspection electronic verification of certificates and records
PSCC36Hong Kong20 to 23 October 2025Official company performance lists from 1 January 2026; flag and RO method harmonization with Paris from 1 January 2028
PSCC37Singapore7 to 10 September 2026Annex 2 SRP amendments effective 1 January 2028; new RO method (data from 1 January 2027, list from 1 July 2028); banning framework discussed; intersessional group on fraudulent registration; 2028 CIC agreed
PSCC38Panama (tentative)18 to 21 October 2027

PSCC37 was chaired by Kenny Crawford of the Australian Maritime Safety Authority. PSCC35 also raised concerns about improper extensions of certificates and about remote surveys.

The Secretariat is a non-profit body “located in Tokyo” and independent of any maritime administration (Section 6.5). Its Secretary since PSCC36 is Ishihara Akira. English is the official language of the Memorandum (Section 8.8).

The 1 January 2028 amendments to Annex 2 were adopted but are not yet in effect. The Ship Risk Profile described in this article is the one in force until that date.

Tokyo MoU practical implications for owners, managers and masters

For a ship trading in the Asia-Pacific, the Tokyo MoU record is a commercial document as well as a regulatory one. It is public on the Tokyo MoU website and in Equasis, where charterers and tanker vetting under SIRE can read it, and the Ship Risk Profile looks back 36 months.

Managing the Ship Risk Profile

Of the seven Annex 2 parameters, three are within an operator’s reach. Keeping every inspection at 5 or fewer deficiencies avoids the per-inspection point, avoiding three detentions in 36 months avoids the detention point, and ISM company performance, where each ISM deficiency weighs 5 times an ordinary one, is set by the fleet’s record. Ship type and age are fixed; flag and RO are changeable only at the cost of a reflagging or a change of class.

A container ship or bulk carrier starts at 2 points by type. One more point, from age over 12 years, a Low performance flag or a Low performance RO, brings it to 3; a fourth point from any source makes it a High Risk Ship with a 2 to 4 month window.

Preparing for an inspection

The 2025 figures point to where inspectors find the detainable items: fixed fire-extinguishing installations, ISM implementation and lifeboats. Fire safety was the largest single deficiency category, at 18,020. A master preparing for a Tokyo MoU call has those three areas, the current CIC questionnaire (cargo securing until 30 November 2026), and certificate validity as the first checks, because an improperly extended certificate was a named PSCC35 concern.

Ballast water management and MLC 2006 wages and employment agreements were the CIC subjects in 2025 and 2024.

After a detention

A detention is notified to the flag State, published in the Tokyo MoU detention data and entered in APCIS, where it feeds the ship, company, flag and RO ratings. The company’s options are the national appeal or, through the flag State or RO, the detention review within 120 days or 4 months of release. A review finding is not binding and carries no compensation, although the detention review page states that it may justify the port State amending its APCIS records.

A third detention within 12 months puts the ship on the under-performing ships list, with more frequent inspection to follow.

Limitations of the Tokyo MoU data and rules

The figures in this article come from the Tokyo MoU 2025 and 2024 annual reports and the PSCC37 press release of 18 September 2026. They describe the regime in force on 30 September 2026. Three changes are already adopted and not yet in effect: the Annex 2 amendments and the harmonized flag and RO methods from 1 January 2028, and the first list under the new RO method from 1 July 2028.

The flag and RO lists are valid for one year, from 1 July to 30 June, and are recalculated each year on a rolling three-year data window. A flag’s tier in this article is correct for the list valid 1 July 2026 to 30 June 2027 and should be rechecked after that date.

The regional totals mix Authorities that report their whole coastline with four (Canada, Mexico, Panama, the Russian Federation) that report only Pacific ports. Per-Authority volumes are not comparable as a measure of port traffic.

The Memorandum sets the framework, and much of the operational detail sits in procedures below it and in IMO resolution A.1206(34), which is recommendatory. Where the Memorandum and a national statute differ, a detention is decided under the national statute.

The entry-into-force dates in the instruments table are those printed in the Tokyo MoU 2025 annual report. The date a convention binds a given member Authority is that State’s own ratification date, which can be later.

Frequently Asked Questions (FAQs)

Is the Tokyo MoU legally binding on ships?
No. The Memorandum states in its preamble that it is not a legally binding document. It is an administrative arrangement between maritime Authorities. A detention in a Tokyo MoU port is imposed under the port State’s national law giving effect to the conventions that State has ratified, and the Memorandum coordinates how the 22 member Authorities target, inspect and record.
How many members does the Tokyo MoU have?
22 member Authorities in 2026: Australia, Canada, Chile, China, Fiji, Hong Kong (China), Indonesia, Japan, the Republic of Korea, Malaysia, the Marshall Islands, Mexico, New Zealand, Panama, Papua New Guinea, Peru, the Philippines, the Russian Federation, Singapore, Thailand, Vanuatu and Viet Nam. Mexico, admitted on 30 October 2023, is the most recent member.
Is Solomon Islands a member of the Tokyo MoU?
No. Solomon Islands signed the Memorandum in Tokyo on 1 December 1993 but has not accepted it, so it takes part as an observer Authority rather than as a member.
Is the United States a member of the Tokyo MoU?
No. The United States Coast Guard is one of the seven observer Authorities of the Tokyo MoU, alongside Cambodia, the Democratic People’s Republic of Korea, Macao (China), Samoa, Solomon Islands and Tonga.
Is the Russian Federation still a Tokyo MoU member?
Yes. The Russian Federation accepted the Memorandum on 1 April 1995, remains a member Authority, and hosts the APCIS information centre in Moscow under the Ministry of Transport. The Paris MoU, by contrast, suspended the Russian Federation on 20 May 2022. On the Tokyo MoU flag list valid from 1 July 2026, the Russian flag is on the Medium performance list.
When did the Tokyo MoU New Inspection Regime start?
1 January 2014. Its Ship Risk Profile sets an inspection window for every ship, and it is set out today in Annex 2 of the Memorandum.
What makes a ship High Risk under the Tokyo MoU?
Four or more weighting points under Annex 2. A ship of a high-risk type (oil, chemical or gas tanker, bulk carrier, passenger ship or container ship) scores 2; an ISM company with Low or Very low performance, or with no inspection in 36 months, scores 2; age over 12 years, a Low performance flag and a Low or Very low performance RO each score 1; each inspection with more than 5 deficiencies in 36 months scores 1; and 3 or more detentions in 36 months score 1.
How often is a ship inspected in the Tokyo MoU region?
It depends on the Ship Risk Profile. Under Annex 2 Table 2 a High Risk Ship falls due 2 to 4 months after its last inspection in the region, a Standard Risk Ship 5 to 8 months, and a Low Risk Ship 9 to 18 months. Once the window closes the ship is Priority I and, where practical, is to be inspected.
Why are the Tokyo MoU inspection windows shorter than the Paris MoU windows?
The two Memoranda set different windows: Tokyo uses 2 to 4, 5 to 8 and 9 to 18 months, Paris 5 to 6, 10 to 12 and 24 to 36 months. Neither Memorandum gives a reason in its text. The practical result is that a ship trading in the Asia-Pacific falls due for inspection sooner at every risk level.
Does the Tokyo MoU ban ships?
Not at present. The Memorandum contains no refusal-of-access provision equivalent to Section 4 of the Paris MoU. PSCC35 in November 2024 agreed to explore banning under-performing ships, and PSCC37 in September 2026 discussed a common framework to support Authorities considering national legislation to prohibit certain ships from entering their ports. Nothing has been adopted at MoU level.
What is an under-performing ship under the Tokyo MoU?
A ship detained three or more times by Tokyo MoU Authorities in the previous 12 months. The Secretariat publishes the list monthly, and listed ships are subject to more frequent inspection. The 2025 annual report records 222 listings involving 52 ships in 2025.
How do I challenge a Tokyo MoU detention?
Two routes. The shipowner or operator can appeal under the port State’s national law, which Section 3.15 of the Memorandum preserves; an appeal does not suspend the detention. Alternatively the flag State or the RO acting for it can ask the Secretariat for a detention review within 120 days or 4 months of release, whichever is longer. The review is not available once the national appeal route has been used, and its findings are not binding.
Can a detained ship sail to a repair yard?
Yes, under Section 3.8 of the Memorandum. Where deficiencies cannot be rectified in the port of inspection, the Authority may allow the ship to proceed to the nearest appropriate repair port, on conditions agreed with the flag State. A ship that sails without meeting those conditions is dealt with under Section 3.9.
What happens if a ship leaves after detention without complying?
Under Section 3.9 of the Memorandum the ship is detained at any port of a member Authority until the company proves full compliance, and it becomes an overriding priority for inspection under Section 3.3.2.
Does a Tokyo MoU detention affect the RO and the company rating?
Yes. The Recognized Organization performance list and the ISM company performance both draw on inspection and detention data. The company performance uses a detention index and a deficiency index compared with Tokyo MoU averages, in which each ISM deficiency weighs 5 points and every other deficiency 1 point.
Which conventions does a Tokyo MoU inspection check?
The 15 relevant instruments listed in Section 2.1 of the Memorandum: the Load Lines Convention 1966 and its 1988 Protocol, SOLAS 1974 and its 1978 and 1988 Protocols, MARPOL as amended by the 1997 Protocol, STCW 1978, COLREG 1972, the Tonnage Convention 1969, ILO Convention 147, MLC 2006, the AFS Convention 2001, the 1992 CLC Protocol, the BWM Convention 2004 and the Bunkers Convention 2001.
Does the Tokyo MoU enforce the Hong Kong Convention or the Nairobi Wreck Removal Convention?
No. Neither is listed among the relevant instruments in Section 2.1 of the Memorandum, although both are on the Paris MoU list.
What were the Tokyo MoU inspection figures for 2025?
The 2025 annual report records 35,546 initial inspections, a record, of 19,980 individual ships under 111 flags; 90,168 deficiencies; and 1,255 detentions, a detention rate of 3.53 percent. In 2024 there were 32,054 inspections and 1,189 detentions, 3.71 percent.
What are the most common deficiencies found by Tokyo MoU inspectors?
In 2025, fire safety (18,020 deficiencies), life-saving appliances (11,818), working and living conditions (9,108) and safety of navigation (8,936), which together made up 53 percent of the total. The most frequent detainable items were fixed fire-extinguishing installations (215), ISM (200) and lifeboats (152).
Is my flag on the Tokyo MoU High, Medium or Low performance list?
Check the list valid from 1 July 2026 to 30 June 2027, calculated on 2023 to 2025 data. It ranks 66 flags: 15 Low, 19 Medium and 32 High performance. A flag needs at least 30 inspections over the three years to be listed.
What happened to the Black, Grey and White lists?
Amendments adopted at PSCC35 in November 2024 renamed the tiers Low, Medium and High performance with effect from 1 July 2025. The list published in the 2024 annual report, on 2022 to 2024 data, was the last issued under the colour names.
What is APCIS and can I search it?
The Asia-Pacific Computerized Information System is the Tokyo MoU inspection database, located in the Russian Federation under Section 6.6 of the Memorandum and run from Moscow. It holds every member inspection and computes each ship’s risk profile. Inspection results are published on the Tokyo MoU website, and the data is also supplied to IMO GISIS and Equasis.
What is the current Tokyo MoU concentrated inspection campaign?
Cargo securing of cargo units and cargo transport units, run jointly with the Paris MoU from 1 September to 30 November 2026. The 2027 campaign is on enclosed space entry, also joint, and PSCC37 agreed a 2028 campaign on safety of navigation and passage planning, with the Paris MoU invited to join.
What did the 2025 BWM concentrated inspection campaign find?
Tokyo MoU Authorities carried out 9,244 inspections during the campaign, of which 6,930 (74.96 percent) used the CIC questionnaire. There were 30 detentions related to ballast water management, 0.43 percent, among 184 detentions in total during the period.
What changes on 1 January 2028?
PSCC37 adopted amendments to the Annex 2 Ship Risk Profile taking effect on 1 January 2028, and the flag and RO performance methods are to be harmonized with the Paris MoU from the same date. The new RO method collects data from 1 January 2027, and the first RO list under it is used from 1 July 2028.
Can a follow-up inspection be done remotely?
Yes, for some follow-ups. The 2025 annual report records 1,383 remote follow-up inspections, 10.97 percent of the 12,607 follow-ups carried out that year.
Are ships at anchor covered by the Tokyo MoU?
Yes. Section 1.3 of the Memorandum applies it to foreign merchant ships calling at a port of a member Authority or anchored off such a port.
Where are the Tokyo MoU Secretariat and Committee?
The Secretariat is a non-profit body located in Tokyo and independent of any maritime administration (Section 6.5). The Port State Control Committee, made up of the member Authorities, meets once a year; its 37th meeting was held in Singapore from 7 to 10 September 2026, and the 38th is tentatively set for Panama from 18 to 21 October 2027.
Do Canada, Mexico, Panama and the Russian Federation report all their inspections to the Tokyo MoU?
No. For these four members the Tokyo MoU data covers only their Pacific ports. Their Atlantic, Caribbean or Baltic ports fall under other regimes where they belong to one.
How are Tokyo MoU deficiency codes structured?
Five-digit codes grouped under two-digit main categories, for example 07 Fire safety, 11 Life saving appliances, 14 Pollution prevention (ballast water under 148xx), 15 ISM and 18 Labour conditions. The code list is published by the Tokyo MoU and was last dated 25 December 2025.

Sources

  1. Memorandum of Understanding on Port State Control in the Asia-Pacific Region, including the 23rd amendments, effective 1 July 2025
  2. Tokyo MoU Annual Report on Port State Control in the Asia-Pacific Region 2025
  3. Tokyo MoU Annual Report on Port State Control in the Asia-Pacific Region 2024
  4. Tokyo MoU press release on the 37th Port State Control Committee, Singapore, 18 September 2026
  5. Tokyo MoU: New Inspection Regime
  6. Tokyo MoU NIR information sheet, version of 1 July 2025
  7. Tokyo MoU: Detention review procedure
  8. Tokyo MoU deficiency codes, as of 25 December 2025
  9. Paris and Tokyo MoUs launch the 2026 CIC on cargo securing
  10. IMO resolution A.1206(34): Procedures for Port State Control, 2025, adopted 3 December 2025