From The Japanese Navy in World War II, Naval Institute Press. According to Atsushi Oi, who was involved in the IJN's attempts to set up escort forces and then develop a convoy strategy, there were plans to create a cordon because of the impact convoy would have on shipping circulation.
There was no question that the best way to prevent the mounting shipping losses was to adopt a convoy system in full measure. As we have seen, however, in the fall of 1943 the cry was still loud for a faster circulation of shipping. On the other hand, there was no hope of an early remedy for the extreme shortage of escort vessels. The GEHQ, caught in this dilemma, hit upon the idea that faster shipping circulation would not necessarily be unfeasible if the best use of geographic advantage could be made. The idea occurred first to Admiral Oikawa. He himself penciled the plan, the heart of which was as follows:
1) The sea area linking the East China Sea, the Taiwan Strait, and the South China Sea was to be made safe from submarine intrusion, so that within this sea area merchant ships would be able to sail independently, without forming a convoy, and thus secure the highest possible efficiency of shipping circulation. For this purpose, the island chain comprising the Ryukyus, Taiwan, the Philippines, and Borneo was to be connected with mine barriers. As for places where minelaying was not feasible, land-based radars and sonars as well as patrol planes and patrol vessels would guard the sea gaps.
2) The sea belt along the Nampo Shoto (including the Bonin and Volcano islands) and the Mariana Islands was to be guarded by radar stations that would be installed on these islands, as well as by patrol planes and ships, so that enemy submarines would find it difficult to invade the sea belt. Convoys would sail within the belt.
3) The sea lanes along the southern coast of Honshu (between Yokohama and Kobe) and along the eastern coast (between Yokohama and the ports of Hokkaido) would be guarded with shore-based radars, patrol planes, and patrol ships, so that ships would be free to sail safe from the submarine menace. In those days the Sea of Japan and the Yellow Sea were not infested with submarines.
The idea was very enthusiastically received in government circles, although the Naval General Staff gave half-hearted support. The people of the Naval General Staff first insisted that all mines then on hand had to be reserved against the probable emergency of Russian entry into the war. Though this obstacle was at last surmounted, and though the government consented to appropriate necessary materials (especially steel) for the production of a sufficient number of mines, only four minelayers were made available. The minelaying took so much time that only the East China Sea and the Taiwan Strait had been partly mined before the air supremacy over the projected sea area had been wrested from Japan’s hand. As for shore-based radars, the blueprint was completed in no time, but only one or two stations were actually installed before Okinawa was taken.