Rising Defense Spending, a Flat Culture Agency Budget — Shelters, Libraries and Museums
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.
×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.
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.
* Japan's 5% covers underground facilities effective against missile attacks only. Including all 61,000 designated sites, most are above-ground structures.
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
- 'Fund Museums with Public Money' — What's at Stake in a Country Whose Culture Agency Gets 0.02% of GDP(このサイトの記事)
- Japan's Welfare Capture Rate — The Safety Net That Doesn't Reach(このサイトの記事)
- At the Intersection of Climate Change and Social Inequality(このサイトの記事)
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
- 1Ministry of Defense FY2025 Budget Overview(FY2025) Open source
- 2Ministry of Defense FY2022 Budget Overview(FY2022) Open source
- 3Ministry of Finance FY2025 Budget Proposal(FY2025) Open source
- 4Agency for Cultural Affairs, FY2026 Budget Overview (with FY2025 initial budget)(FY2025) Open source
- 5Jiji Press(March 2026) Open source
- 6Nikkei(2022) Open source
- 7Swiss Federal Office for Civil Protection(2025) Open source
- 8Finnish Ministry of the Interior(2024) Open source
- 9Agency for Cultural Affairs, FY2025 Budget Overview(FY2024 and FY2025) Open source
- 10Agency for Cultural Affairs, FY2026 Budget Overview(FY2026) Open source
- 11MEXT, Medium-Term Objectives for the National Museum of Art(February 2026) Open source
- 12Japan Library Association, Public Library Trends(2025) Open source
- 13Japan Library Association, Public Library Trends(FY2025) Open source
- 14Japan Library Association(2022) Open source
- 15Public Libraries News(2024) Open source
- 16BBC Data Unit, 'Public libraries in crisis as councils cut services'(September 2024) Open source
- 17Museums Association(2024) Open source
- 18Local Government Association, 'Under Pressure: council spending on culture and leisure'(2024) Open source
- 19Library Journal infoDOCKET (summary of a report on IMLS staff leave)(March 2025) Open source
- 20Institute of Museum and Library Services, FY 2023 – FY 2025 Budget Appropriations Table(2024) Open source
- 21American Library Association (announcement of 7 April 2026)(2026) Open source
- 22The New York Public Library(2024) Open source
- 23Urada, Nicholls & Faille, International Journal of Environmental Research and Public Health 19(14)(2022) Open source
- 24NAPLE Forum(2024) Open source
Questions to Reflect On
- Has your local public library maintained or reduced its services compared to five years ago?
- Does 'protecting citizens' mean only defense against military threats?
- 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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