I believe permitted means no charge
http://www.jal.co.jp/en/inter/tsf/overseas.html
1. Exchange or Reissue of tickets necessitated by change of fare, tax, charges (including tax, charges change only *) or itinerary.
*Applicable only at Asia/Oceania/China.
....
3. Ticketing Service Fee does not apply to the following tickets.
·FFP Award Tickets
·Tickets for infants not occupying a seat
4. Ticketing Service Fee applies per ticket.
5. There is no Child discount.
6. Ticketing Service Fee applies to Exchange or Reissue of tickets in addition to any rebooking fee required by fare rule of the ticket.
So ticketing fee is per passenger who occupies a seat.
Rerouting means you change your routing, e.g. from TPE-NRT-BOS to TPE-NRT-ORD-BOS. Booking change without rerouting means just changing to a later or earlier flight on the same route.