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Rising Defense Spending, a Flat Culture Agency Budget — Shelters, Libraries and Museums

Naoya YokotaAbout 9 min read

Defense spending at ¥8.7 trillion, the Agency for Cultural Affairs at ¥106 billion. In FY2025, when defense outpaced education spending by 2.1x, Japan approved a national shelter construction plan. Taiwan can shelter more than three times its population and Switzerland very nearly all of its own, while Japan has about 4,000 underground facilities. This article examines the structural asymmetry of protecting citizens from missiles while protection against poverty, information gaps and social isolation gets no more money.

TL;DR

  • In FY2025, Japan's defense budget reached ¥8.7 trillion — 2.1 times education spending — while the Culture Agency budget remains 1/80th of defense
  • Japan has some 61,000 designated evacuation facilities but only about 4,000 underground ones, against Taiwan's 100,000 shelters and Switzerland's 370,000
  • Austerity-driven cuts to libraries and museums in the UK and US have hit the most economically vulnerable communities hardest, while in Japan the Culture Agency budget has stayed flat as defense spending has risen

What Is Happening

Defense ¥8.7T vs Culture Agency ¥106B; Japan's 4,000 underground shelters vs Taiwan's 100,000

In fiscal year 2025, Japan's defense-related expenditure reached ¥8.7005 trillion. That was about ¥750 billion more than the year before and about ¥3.3 trillion more, over three years, than the ¥5.4 trillion of fiscal year 2022.

In that same fiscal year, education and science promotion expenditure came to ¥5.5496 trillion, of which science and technology promotion accounted for ¥1.4221 trillion. Net of science and technology, education-related expenditure was ¥4.1275 trillion — defense spending had grown to 2.1 times that figure. The ' annual budget stands at a mere ¥106.3 billion — roughly one-eightieth of the defense budget. Visualized, the asymmetry in scale becomes stark.

Defense8.7¥T(FY2025)
Education4.1¥T(FY2025)
Culture Agency¥106B(FY2024 approx. ¥106.2B)

×2.1Defense spending is approx. 2.1x education, 82x the Culture Agency budget

* Defense: Ministry of Defense; Education: Ministry of Finance general account; Culture Agency: Agency for Cultural Affairs budget overview.

Japan: Defense vs Education vs Culture Agency Budget (¥ trillion) — Government Sources

The shelter policy decision

On March 31, 2026, the Cabinet approved a basic policy for securing "shelters" against missile attacks. The stated objective is to ensure sufficient facilities at the municipal level to accommodate all residents by 2030. Yet of the designated emergency temporary evacuation facilities, approximately 61,000 nationwide, some 54,000 are public buildings, and only about 4,000 are the underground facilities that offer meaningful protection against missile strikes.

Taiwan has constructed 100,000 shelters, with capacity for more than three times its population. Switzerland maintains 370,000 shelters built during the Cold War, enough for very nearly the entire resident population. Finland has about 50,500 shelters with space for 4.8 million people, roughly 85% of them private reinforced-concrete shelters inside individual buildings.

CountryCoverage
Taiwan370%
~86M (105K sites)3.7x total population
Switzerland107%
~9M (370K sites)Cold War-era, modernizing
Finland85%
~4.8M (50K sites)83% NBC-capable
Japan5%
~3,900 underground facilitiesUnderground only. 61K total designated
100%+50–99%Japan (5%)

* Japan's 5% covers underground facilities effective against missile attacks only. Including all 61,000 designated sites, most are above-ground structures.

Shelter Population Coverage by Country (%) — Government and Media Sources

Investing in infrastructure to protect citizens from missiles possesses its own security rationale. The problem is that the budget for cultural infrastructure, funded from the same fiscal base, has not grown as defense spending has. The Agency for Cultural Affairs' initial budget was ¥106.2 billion in fiscal 2024 and ¥106.3 billion in fiscal 2025, and ¥107.3 billion in fiscal 2026: roughly flat. In fiscal 2025, when defense-related expenditure rose by about ¥750 billion, the Agency's initial budget rose by ¥100 million.

Background & Context

England's publicly run libraries fell by a net 150 since 2016, hitting the poorest areas hardest; US bid to abolish IMLS

The State of Japan's Cultural Infrastructure

The sixth (FY2026 to FY2030), set by the , require the exhibition programs of and art institutions to cover at least 65% of their costs with self-generated revenue by the final year, and aim to raise this share to 100% in the period after that (from FY2031). Museums whose share falls below 40% in the fourth year (FY2029), among other signs of not fully fulfilling the role society expects of them, become subject to reorganization. The has stated that reorganization does not envisage closing museums, and that a share below 40% alone does not immediately make a museum subject to reorganization.

Japan's public libraries numbered 3,318 in the 2025 tabulation, almost unchanged from 3,319 in 2024. The budget for library materials was ¥29.24 billion in FY2025, up from ¥28.65 billion in FY2024. As of FY2022, 674 libraries have adopted the , and persistent criticism holds that cost-reduction-oriented management undermines the accumulation of specialized knowledge and institutional continuity.

The UK Precedent

The United Kingdom has experienced the consequences of cultural facility cuts in advance of other nations.

Since 2010, spending on public libraries has been cut by an amount equal to between one-quarter and three-eighths of total public library expenditure, depending on whether inflation is counted. Annual spending is £232.5 million lower than in 2010, or £329 million lower once inflation is counted. Since 2016, approximately 125 libraries have been physically closed in England, with a further 100 transferred to community groups. Even accounting for 75 newly established libraries, the net result is a loss of 150 libraries.

Four times the likelihood of losing a library in the poorest areas

The distribution of these losses demands attention. Communities in the most deprived deciles were four times more likely to have lost a publicly funded library since 2016. The disappearance of libraries inflicted concentrated damage on those communities most in need of information access.

The impact on museums and cultural institutions has been equally severe. Local authority spending on culture and leisure in England has been reduced by £2.3 billion since 2010. Culture and leisure's share of council service spending, excluding education, public health, police and fire, fell from 7.4% in 2010/11 to 4.5% in 2023/24 (an estimate).

The IMLS Abolition Shock in the United States

In 2025, the Trump administration issued Executive Order 14238 directing the "maximum abolition" of . Nearly all of approximately 75 staff members were placed on administrative leave, and federal grants already committed to libraries in California, Connecticut, and Washington were subject to early termination.

IMLS's appropriation was $294.8 million in FY2024. A by three associations, including the Public Library Association, a division of the , warns that job skills training and other library services are at risk without federal funding, and cites IMLS funds that upgraded internet speeds for library patrons in Whitefish, Montana. Its abolition threatened to deepen the digital divide in communities already experiencing severe information access disparities.

Attorneys general from 21 states filed suit, and in November 2025 a federal district court in Rhode Island ruled the administration's actions unlawful and permanently enjoined them. In April 2026, the administration withdrew its appeal, bringing the crisis toward resolution. However, during this period, New York City's three public library systems (NYPL, Brooklyn, Queens) were handed $58.3 million in operating cuts and $125 million cut from their capital budgets — the most severe proposed since the years following the 2008 financial crisis.

The Invisible Defense Libraries Provide

Libraries are not mere book-lending facilities. A calls libraries "local information hubs" in its title and includes a section on the public library as a local information centre. They are social infrastructure serving all inhabitants from children to the elderly.

A (2022, n=63) found that 69% of the 49 patrons experiencing homelessness or housing instability and 93% of the 14 staff wanted a library social worker to connect people with housing and treatment. The same paper notes that at the San Francisco Public Library, which hired a clinical social worker earlier, more than 150 people found permanent housing over six years and 800 received other services. According to on a study published by the IMLS, the presence and use of libraries was positively linked to community health and local school effectiveness. In rural counties the link with community health was especially pronounced. For museums, the researchers could detect no significant relationship with either outcome.

These functions constitute defense against poverty, defense against information inequality, and defense against social isolation. Yet in the hierarchy of budget priorities, such "invisible defense" is treated as incomparably less important than defense against missiles and military threats.

Reading the Structure

Examines the asymmetry in the question of what citizens are protected from, and the paradox of dual-use public cultural facilities

Consider the numbers once more. Defense: ¥8.7005 trillion. Education-related expenditure: ¥4.1275 trillion. Culture Agency: ¥106.3 billion. Shelters: Taiwan has capacity for more than three times its population, Japan about 4,000 underground facilities. These four figures articulate the present Japanese state's answer to a foundational question: what are citizens to be protected from?

Skewed defence, the dual-use paradox, irreversible cuts

The first structural issue is the asymmetry of protection embedded in the budget. The increase in defense spending is justified by changes in the security environment: China's military expansion, North Korea's ballistic missile launches, Russia's invasion of Ukraine. Strengthening defense capability in response to these geopolitical risks carries policy rationale. But if the process of securing those funds systematically erodes cultural infrastructure, it reveals that the definition of "security" itself is too narrow. Protecting bodies from missiles constitutes security. Does the loss of access to knowledge, information, and culture not constitute insecurity?

The second structural issue is the paradox of dual-use facilities. Japan's shelter design philosophy embraces repurposing existing underground spaces — subway stations, underground shopping arcades, parking structures — to serve both peacetime public functions and wartime shelter needs. Extending this "dual-use" logic leads to a recognition that libraries and museums are themselves "infrastructure for protecting citizens" in peacetime. In the San Diego survey, most of the patrons experiencing homelessness or housing instability, and most of the staff, wanted the library to offer support that connects people with housing and treatment. Libraries constitute a different species of "shelter" — the nucleus of social defense in times of peace.

The third structural issue is the irreversibility of cuts. What the British experience teaches is that once a library closes, it rarely reopens. Buildings are repurposed, collections dispersed, and specialists move to other professions. Since 2016, the number of publicly run libraries in England has fallen by a net 150 or so, about 100 of which continue under community groups. How many decades would it take to restore that provision as publicly run libraries — or is recovery simply impossible? The research capabilities accumulated by museum curators, the conservation and restoration expertise for artworks, the records of local cultural heritage — all represent "invisible assets" that cannot be reconstructed once lost. Shelters can be dug given sufficient budget. But cultural accumulation forms only through time and sustained human endeavor.

The Nordic reference point

The Nordic countries offer one reference point. Finland's per-capita library spending stands at 60.1 euros, approximately six times that of Germany. Simultaneously, Finland maintains about 50,500 civil defence shelters with space for 4.8 million people. Nations exist that invest in both cultural and military infrastructure rather than treating them as a zero-sum trade.

"What are we protecting citizens from?" The answer to this question is already written in the budget numbers.


Related Columns


References

FY2025 Defense Budget Overview — Ministry of Defense, Japan (2025). Ministry of Defense

FY2026 Agency for Cultural Affairs Budget Overview — Agency for Cultural Affairs (2026). Agency for Cultural Affairs

Cabinet Approves Shelter Policy for Municipal-Level Full Coverage — Jiji Press (2026). Jiji Press

Federal Council wants to modernize ageing shelters due to wars — swissinfo.ch (2024). swissinfo.ch

IMLS Cuts Put America's Public Libraries at Risk — Association for Rural & Small Libraries, Public Library Association, Urban Libraries Council (2025). ALA

£232 million cut to UK public libraries since 2010 — Public Libraries News (2024). Public Libraries News

Homelessness at the San Diego Central Library: Assessing the Potential Role of Social Workers — Lianne A. Urada, Melanie J. Nicholls, Stephen R. Faille (2022). PMC

Reference Books

Statistics cited in this article

  1. 1Ministry of Defense FY2025 Budget Overview(FY2025) Open source
  2. 2Ministry of Defense FY2022 Budget Overview(FY2022) Open source
  3. 3Ministry of Finance FY2025 Budget Proposal(FY2025) Open source
  4. 4Agency for Cultural Affairs, FY2026 Budget Overview (with FY2025 initial budget)(FY2025) Open source
  5. 5Jiji Press(March 2026) Open source
  6. 6Nikkei(2022) Open source
  7. 7Swiss Federal Office for Civil Protection(2025) Open source
  8. 8Finnish Ministry of the Interior(2024) Open source
  9. 9Agency for Cultural Affairs, FY2025 Budget Overview(FY2024 and FY2025) Open source
  10. 10Agency for Cultural Affairs, FY2026 Budget Overview(FY2026) Open source
  11. 11MEXT, Medium-Term Objectives for the National Museum of Art(February 2026) Open source
  12. 12Japan Library Association, Public Library Trends(2025) Open source
  13. 13Japan Library Association, Public Library Trends(FY2025) Open source
  14. 14Japan Library Association(2022) Open source
  15. 15Public Libraries News(2024) Open source
  16. 16BBC Data Unit, 'Public libraries in crisis as councils cut services'(September 2024) Open source
  17. 17Museums Association(2024) Open source
  18. 18Local Government Association, 'Under Pressure: council spending on culture and leisure'(2024) Open source
  19. 19Library Journal infoDOCKET (summary of a report on IMLS staff leave)(March 2025) Open source
  20. 20Institute of Museum and Library Services, FY 2023 – FY 2025 Budget Appropriations Table(2024) Open source
  21. 21American Library Association (announcement of 7 April 2026)(2026) Open source
  22. 22The New York Public Library(2024) Open source
  23. 23Urada, Nicholls & Faille, International Journal of Environmental Research and Public Health 19(14)(2022) Open source
  24. 24NAPLE Forum(2024) Open source

Corrections

  1. — Replaced the number of public libraries and the materials figures from the 2020 tabulation with those from the 2025 tabulation.

    Before
    Japan's public libraries numbered 3,316, of which 19 are private, up by 10 from 3,306 the year before / materials spending came to ¥28.05 billion for the year, down slightly from ¥28.42 billion the year before
    After
    Japan's public libraries numbered 3,318 in the 2025 tabulation, almost unchanged from 3,319 in 2024 / the budget for library materials was ¥29.24 billion in FY2025, up from ¥28.65 billion in FY2024

    Why we got it wrong The figures added in the correction of 25 September 2026 came from the Japan Library Association's 2020 tabulation, and the text did not give the year. In the year-by-year table published in March 2026, which runs to 2025, the number of libraries is almost flat and the budget for library materials has risen. The reason given for the 25 September correction, that the number of libraries had risen and that the only decline in the figures checked was a slight fall in materials spending, was also based on the 2020 tabulation.

  2. — Brought the title, the image headline for social media and the description in line with what the text establishes.

    Before
    Title: “Closing Libraries, Digging Shelters — The Tradeoff Between Defense Expansion and Cultural Budget Cuts” / image headline for social media: “8.7 trillion for defence, 106 billion for culture” / description: “while defunding protection against poverty, information gaps, and social isolation”
    After
    Title: “Rising Defense Spending, a Flat Culture Agency Budget — Shelters, Libraries and Museums” / image headline for social media: “Defence 8.7 trillion, culture agency 106 billion” / description: “while protection against poverty, information gaps and social isolation gets no more money”

    Why we got it wrong The Agency for Cultural Affairs' initial budget was almost flat from FY2024 to FY2026, and so was the number of public libraries, which does not fit “closing libraries” or “cultural budget cuts”. The text notes that some countries invest in both, and does not say that culture is cut to pay for defense, so “tradeoff” was dropped as well. The ¥106 billion is the Agency's budget; “for culture” reads as all spending on culture, so it now names the culture agency.

  3. — Brought the description of the medium-term objectives for national museums in line with the original text and removed the references to closure and zero operating grants.

    Before
    Japan's national museums and art institutions face an existential threat / requiring national museums and art institutions to achieve a self-generated revenue ratio of 65% or higher / Failure to meet this threshold could trigger restructuring reviews, including potential closures / a self-revenue ratio of 100%, meaning zero operating grants
    After
    Exhibitions must cover at least 65% of their costs with self-generated revenue by the final year of the sixth medium-term period (FY2026 to FY2030), with the aim of reaching 100% in the period after that (from FY2031); museums whose share falls below 40% in the fourth year (FY2029), among other signs of not fully fulfilling the role society expects of them, become subject to reorganization; the Agency for Cultural Affairs states that reorganization does not envisage closure and that a share below 40% alone does not immediately make a museum subject to reorganization

    Why we got it wrong The original objectives do not mention closure, and the Agency for Cultural Affairs page this paragraph linked to states that reorganization does not envisage closing museums and that a share below 40% alone does not immediately make a museum subject to reorganization. The 65% and 100% figures apply only to exhibition programs, and the National Museum of Art's objectives describe securing appropriate operating grants as indispensable. The source for the figure now points to the objectives themselves instead of a news article.

  4. — Brought the descriptions of the San Diego study, the research covered in an NEA blog post, the IMLS budget, UK library spending cuts and closures, and the Ministry of Education report in line with their sources.

    Before
    A study of the San Diego Central Library (2019) found that over 150 individuals secured permanent housing / positive correlations between libraries and museums and community health, educational outcomes and employment / IMLS's annual budget of approximately $250 million / cut by approximately 50% in real terms / closure rates four times higher in the most deprived authorities / "centers of information and knowledge for local residents"
    After
    The San Diego study (2022) found that 69% of the 49 patrons experiencing homelessness or housing instability and 93% of the 14 staff wanted a library social worker; the 150 people housed were at the San Francisco Public Library / positive links for libraries, no significant relationship for museums / an appropriation of $294.8 million in FY2024 / a cut equal to one-quarter to three-eighths of total expenditure / the most deprived communities were four times more likely to have lost a publicly funded library / the report calls libraries local information hubs in its title

    Why we got it wrong The authors and year of the paper were wrong, and the figure of 150 people came from the San Francisco example the paper cites, not from San Diego. The 69% and 93% also came from 49 patrons experiencing homelessness or housing instability and 14 staff, not from library patrons in general. What the text called NEA research was a study published by the IMLS and described in an NEA blog post; it found no significant relationship for museums. The IMLS budget figure does not appear on the ALA page it was attributed to; the IMLS budget table gives $294.8 million for FY2024. The UK source puts the cut at one-quarter to three-eighths of expenditure and gives no 50% figure, and the closure figures now cite the BBC Data Unit. The Ministry of Education page does not contain the quoted phrase. The budget document and the book title in the references were also aligned with the originals.

  5. — Corrected how the defense budget's share of GDP and its growth were described.

    Before
    an increase of approximately ¥750 billion from the prior year, bringing the figure to roughly 1.8% of GDP / the budget has expanded by approximately ¥1 trillion annually
    After
    about ¥750 billion more than the year before and about ¥3.3 trillion more, over three years, than the ¥5.4 trillion of fiscal year 2022

    Why we got it wrong The figure of roughly 1.8% of GDP does not appear in the Ministry of Defense document cited. Press reports in April 2025 gave it for the government's total of about ¥9.9 trillion, which adds items such as the Japan Coast Guard budget and public works spending usable for security to the defense budget, so it is not the ratio for the ¥8.7005 trillion of defense-related expenditure. The claim of about ¥1 trillion a year did not match the latest one-year increase of about ¥750 billion, so it now uses the difference between the Ministry of Defense figures for fiscal 2022 (¥5.4005 trillion) and fiscal 2025 (¥8.7005 trillion).

  6. — Replaced the claim that Japan's cultural infrastructure is being cut with what the sources support.

    Before
    The problem lies in the simultaneous erosion of cultural infrastructure, funded from the same fiscal base / heading: 'Cultural Infrastructure Under Siege' / Public libraries, too, are quietly contracting
    After
    The problem is that the budget for cultural infrastructure, funded from the same fiscal base, has not grown as defense spending has; the Agency for Cultural Affairs' initial budget was ¥106.2 billion in fiscal 2024, ¥106.3 billion in fiscal 2025 and ¥107.3 billion in fiscal 2026, roughly flat / heading: 'The State of Japan's Cultural Infrastructure' / Japan's public libraries numbered 3,316, up by 10 from the previous year, while materials spending fell slightly

    Why we got it wrong This section presented an existential threat to national museums and shrinking public libraries as examples of Japan's cultural infrastructure being cut. After the earlier correction removed the threat, the sources showed that the Agency for Cultural Affairs' initial budget is roughly flat and that the number of public libraries rose from the previous year; of the figures checked, only materials spending fell, and only slightly. The text therefore no longer says that Japan is cutting cultural infrastructure. It says the budget has not grown as defense spending has.

  7. — Corrected how UK library spending cuts, the culture and leisure share of council spending, and the fall in library numbers were described.

    Before
    The cumulative reduction amounts to £329 million after inflation adjustment / the expenditure share falling from 7.4% to 4.5% — effectively halved / the 150 libraries lost over a single decade / UK lost 150 libraries net since 2016 with poorest areas hit 4x harder / heading: 'Closure rates ran four times higher in the poorest areas'
    After
    Annual spending is £232.5 million lower than in 2010, or £329 million lower once inflation is counted / culture and leisure's share of council service spending, excluding education, public health, police and fire, fell from 7.4% in 2010/11 to 4.5% in 2023/24 (an estimate) / since 2016 the number of publicly run libraries in England has fallen by a net 150 or so, about 100 of which continue under community groups / the poorest areas were four times more likely to lose a library

    Why we got it wrong The source, Public Libraries News, says spending is £232.5 million (£329 million with inflation) lower than in 2010, not a cumulative total of yearly cuts. The 7.4% and 4.5% come from the Local Government Association (LGA), the councils' representative body, as the share of service spending excluding education, public health, police and fire. A fall from 7.4% to 4.5% does not mean the share was halved, so 'effectively halved' was removed. In the BBC Data Unit's material the 150 is a net figure since 2016 and about 100 of those libraries continue under community groups, so the wording about losing 150 in a decade was dropped. The heading and key point that still said closure rates were four times higher now match the body's 'four times more likely to have lost a publicly funded library'.

  8. — Corrected how IMLS staffing, the library associations' statement and the lawsuit were described.

    Before
    All but 12 of approximately 75 staff members were placed on administrative leave / The ALA (American Library Association) warns that job skills training and other library services are at risk without federal funding
    After
    Nearly all of approximately 75 staff members were placed on administrative leave / a joint statement by three associations, including the ALA's Public Library Association, warns that job skills training and other library services are at risk without federal funding / in November 2025 a federal district court in Rhode Island ruled the administration's actions unlawful and permanently enjoined them, and in April 2026 the administration withdrew its appeal (the ALA announcement added as the source)

    Why we got it wrong No source could be found for 'all but 12'. The ALA and the American Alliance of Museums said that the entire IMLS staff had been placed on administrative leave, so the text now says nearly all. The linked statement was issued jointly by the Public Library Association (a division of the ALA), the Association for Rural & Small Libraries and the Urban Libraries Council, not by the ALA alone. The account of the lawsuit now cites the ALA announcement of 7 April 2026.

  9. — The culture budget and the international shelter comparison were still the old figures in the social copy.

    Before
    Culture Agency 106.2 billion yen / Taiwan 370%, Japan 5%
    After
    Culture Agency 106.3 billion yen / Taiwan has 100,000 shelters for over three times its population; Japan has about 61,000 evacuation sites, about 4,000 underground

    Why we got it wrong The Swiss and Finnish figures were dropped from the body on 2026-08-18 but survived in the social copy.

  10. — Repointed the 106.3 billion yen culture budget at a document whose contents can actually be read.

    Before
    Source: Agency for Cultural Affairs, outline of the FY2025 budget (the PDF is corrupt and its text cannot be extracted)
    After
    Source: Agency for Cultural Affairs, outline of the FY2026 budget, which gives both years as 106.3 billion yen rising to 107.3 billion

    Why we got it wrong When this figure was corrected earlier today, the PDF cited as its source turned out to be malformed and could not be read. It now points to the FY2026 overview, which states the figure for both FY2025 and FY2026.

  11. — Corrected the education budget, shelter counts and population coverage, the number of public libraries, and the New York Public Library budget cut.

    Before
    Education and culture spending of about 4.1275 trillion yen / an Agency for Cultural Affairs budget of about 106.2 billion / about 3,900 underground facilities nationally, covering about 5% of the population / Taiwan with about 105,000 at about 370% of its population / Switzerland with about 370,000 at 107% / Finland with about 50,000 at 85%
    After
    5.5496 trillion yen, of which 1.4221 trillion is science and technology promotion / 106.3 billion yen / about 61,000 facilities nationally, of which about 54,000 are public / Taiwan has built 100,000 shelters, more than three times its population

    Why we got it wrong The education budget confused the category that includes science and technology promotion with the one that does not. The shelter counts conflated all designated evacuation facilities with underground shelters. The coverage figures for other countries also did not match the sources.

Questions to Reflect On

  1. Has your local public library maintained or reduced its services compared to five years ago?
  2. Does 'protecting citizens' mean only defense against military threats?
  3. What does treating cultural spending as a 'cost' rather than an investment make invisible?

Key Terms in This Article

Designated Manager System
A system under Japan's Local Autonomy Act that allows private operators and NPOs to manage public facilities. Introduced in 2003 to improve efficiency and service quality, though typically short designation periods (3-5 years) can hinder long-term investment.
Medium-Term Objectives
Operational objectives that the competent minister sets for a period of three to five years, issues to an institution and publishes, under Article 29 of Japan's general law on independent administrative institutions. They set the period and cover the quality of services, operational efficiency and financial improvement. The institution then draws up a medium-term plan based on them and has it approved by the minister (Article 30).

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