Features
Macroeconomics
Is Japan what the future holds?
Warwick Lightfoot wonders whether other advanced countries will share the Japanese fate of struggling to revive a stagnant economy as the population ages
Journalists writing about Japan are often tempted to reference 1980s pop hits. When Warren Buffet announced that he would be investing there in September 2020, he was – inevitably – headlined as “Big in Japan”. But his decision, just as inevitably, caught the attention of the international investment community because Japan has become the global byword for a stagnant economy and an investment graveyard.
Over the past 70 years, the Japanese economy has been a sort of spectacular meteorite among advanced economies. In many respects it has exemplified the highs, and now the relative lows, of economic performance in the rich world. In the 1950s it was the poster child of a rapidly growing economy that benefited from having its defence paid for by the US and its exchange rate undervalued within the Bretton Woods fixed-parity exchange rate regime. Japanese economic success mirrored the post-war West German economic miracle. It was distinguished by strong growth, huge export success and technological innovation in cars, motorbikes and electronics that swept away foreign competitors. Japan built up a massive balance of payments surplus.
Japan’s manufacturing sector helped put the rust into the US rust belt and decimate European competition
This success was not lost on investors in London and New York. In London, for example, stockbroking firm Vickers, da Costa under the leadership of its senior partner, Ralph Vickers, specialised in Japanese securities. The firm recognised the relative dynamism of the Japanese economy compared with the UK. Japan was, as George Mikes’ 1970s
book put it, the Land of the Rising Yen.
But the country was also on the rise outside its own borders. In the 1970s and 1980s, its manufacturing industries helped put the rust into the US rust belt and decimate European competition. According to the St Louis Fed, imports from Japan into the US “increased sixteen-fold between 1970 and 1989. The import value of $94bn in 1989 was the largest from any single country and was equal to 93% of the total from all of Western Europe.” US strategic power was perceived to be undergoing a profound decline.
In Europe, Japanese investors bought prized iconic assets – from the Mozart Café in Vienna to the Financial Times’s Bracken House building in the City of London. These acquisitions were contentious, particularly in continental Europe. Part of the rationale for the construction of the single market and the single currency was the perceived need to build a fortress Europe to protect Europeans from the menace of Japanese and other competition. This imperative was given its fullest expression by the Socialist French prime minister at the time, Edith Cresson, who described the Japanese as ants. She claimed this was to convey the impossibility of Europeans matching their work effort and productivity.
The Plaza accord
After 1989, the Japanese success story started to go wrong and has not really in headline terms gone right since. In 1985, the G7 coordinated a depreciation of the dollar and the German mark vis-à-vis the yen via the so-called Plaza Accord.
Over two years, this engineered a 50% fall in the value of the dollar to the yen. The agreement arose from the pressure by US manufacturers to make imported Japanese goods less competitive. US policy makers hoped this would narrow the US trade deficit with Japan. It failed in that objective, but it helped to make American products more competitive and had a profound effect on Japanese policy.
The bubble
The high yen eviscerated Japan’s export model and the intensive capital accumulation that supported it. To offset this, the country launched an audacious fiscal stimulus. But, at the same time, Japan’s monetary policy was driven by the need to stabilise the exchange rate rather than to manage the domestic economy. Decisions about the discount rate were taken in response to pressure from the US Treasury, rather than Japanese monetary conditions.
The result was an equity and real estate bubble that grew from 1986 to 1991, which was when the equity market bubble popped. That is now considered to be the starting point of a lost decade that might be more accurately called the lost decades.
What burst the bubble? The Bank of Japan began raising interest rates in 1990 because of anxiety about inflated asset prices. The money supply and commercial and retail credit indicators had expanded by double digits for several years until then. In 1991, land and stock prices began to fall sharply. Within a few years, from its peak the Topix stock index fell 54%, while commercial land prices in six main Japanese cities fell 95%.
The stock market to a large degree followed movements in the prices of commercial real estate. Those were driven by the interaction of bank lending and an inelastic supply of land. When banks’ perception of risk changed, credit expansion collapsed and lending and asset values fell. Lower house prices had a profound negative impact on consumers’ confidence, which was aggravated by a fall in real personal disposable income.
Other countries also found it difficult to act on the scale and with the expedition that was needed
The zombies
The macroeconomic and financial policy response of the Japanese authorities to the banking crises and deflationary challenges that followed was, by turns, hesitant, insufficient and then, in terms of fiscal policy, extraordinary in scale. The failure to sort out under-performing bank loans, combined with a determination to stabilise both lenders and borrowers, in the 1990s created the phenomenon of the zombie firm.
The bursting of the Japanese asset price bubble and the collapse of the miracle economy presented a puzzling spectacle to international investors and policy makers alike. In the 1990s, the Japanese government had to suffer a succession of homilies about how it could do things better, both in its own interest and that of the rest of the world. These usually involved advocating a stronger domestic economy, domestic structural supply side reforms and a higher exchange rate. The Annual Economic Report of the US Council of Economic Advisers offered regular policy advice to Japan.
Over some 10 or 15 years, Japanese macroeconomic policy appeared to boil down to permanent fiscal stimulus matched by a highly accommodative monetary policy, an expansion of the central bank balance sheet and the huge accumulation of public debt in relation to national income. Eventually, in its own way, and in its own time, Japan ended up doing all the things the international policy-making community led by the US Treasury had asked it to do. But two and a half decades after the bubble burst, its recovery was not much further forward.
We're all in Tokyo now
Then came the international credit crunch, the banking crises and the Great Recession, which overwhelmed the rest of the advanced economies between 2007 and 2010.
It quickly became apparent that Japan was not an outlier. Other rich countries faced with an asset price bubble, a banking crisis, a deflationary shock and interest rates testing the lower-rate limit found it equally difficult to act on the scale and with the expedition that was needed.
When Prime Minister Shinzo Abe launched an energetic programme of stimulus in 2012, to shake Japan out of its torpor, the world was watching. ‘Abenomics’ was consciously modelled on the Reagan supply side reforms, which used deficits and micro-economic shifts to boost the markets. Abenomics had three dimensions – the so-called three arrows: fiscal stimulus, monetary stimulus and economic reform.
In the context of an ageing demography and falling population, Abenomics has been relatively successful in stabilising and stimulating output. On the critical metric of real GDP per head, which is the key to economic welfare, Japan continues to do well. What Japan has is a rich and slowly growing GDP per head. That is surely more comfortable than an erratic economic cycle of booms and busts, and stagnant GDP per head overall. In that sense, Japan offers lessons and hope to other advanced economies learning to cope with slow overall growth and ageing communities.
The lessons are likely to be needed. Nearly a decade on, and before the present economic shock created by the Covid-19 public health emergency, the Japanese experience looks universal. Central banks tried both conventional and unconventional monetary tools but could not stimulate economic activity. Very low interest rates across the G7 and OECD have created many examples of zombie firms. Governments were hesitant to use fiscal policy and when they did so, as in the case of the Obama administration, they lacked ambition in terms of the scale of the programmes.
Secular stagnation
There appears to be a sort of emerging secular stagnation or stationary state across the mature rich economies. Inflation is low, central banks – no matter what they do – cannot achieve their inflation targets. Interest rates are nudging the zero lower bound, or below it. There is a glut of savings but it is not being used to invest and innovate. Firms are anxious to tap it to shore up their balance sheets against perceived risk. Investment and productivity have disappointed. An ageing population is cautious about spending money and lacks curiosity about new products. This further slows innovation, the diffusion of novel ideas and productivity.
The Japanese experience illustrates the way in which economies may enter a form of balance sheet recession or stagnation after an asset price collapse and banking crisis. They move from an environment where economic agents are profit-maximising entities to one where their principal concern is to minimise risk and the danger from debt.
The domestic Japanese demand for safe investments is greater than in other advanced economies
A good example of just how deadening that is for much-needed productivity gains is offered by Japanese doctors. Like their patients, they are elderly. Despite all the hype of robotic technology in Japanese social care, they have been slow to make use of innovation in patient contact and care management.
Richard Koo coined the term balance sheet recession for the Japanese experience of 1990 to 2003 and suggested it could have a wider applicability. The key proposition is that because companies become anxious to avoid risk, investment falls. In Japan, corporate demand fell by more than a fifth when interest rates went to zero.
In these circumstances, fiscal policy must be used to maintain productive capacity. In Japan, that means public debt as a ratio of national income is 240%. Other advanced economies are having to learn to become comfortable with similar rapid increases in government debt.
Government debt
High government debt levels are generally viewed with horror. The cumulative impact of a Japanese fiscal policy based around huge structural budget deficits has been dramatic. International commentators have been surprised by the ease with which this policy has been used for about a quarter of a century. How can it work?
The first explanation offered is that the domestic Japanese bond demand for safe investments is greater than in other advanced economies. A bond market that has not been reliant on foreign investors has been easier for the authorities to manage.
This reflects the domestic savings ratio and the structure of social security and pensions provision. Japan has a significant life insurance pension fund and official demand for government debt. The net public debt ratio at around 130% has been much lower than the headline gross stock of public debt because of the public sector.
Reflecting worries about risk, there has been heavy demand for government bonds from Japanese banks. The Bank of Japan as part of its monetary operations has also helped to stabilise the demand for government bonds. The big question is: can these unusual features of the Japanese debt markets hold up with an ageing demography and the inevitable process that brings on dis-saving rather than saving?
An ageing population and the likelihood of greater internationalisation of ownership of Japanese public debt as the country ages further is expected to push up future interest rates and debt servicing costs. While this implies a higher future tax burden, it is unclear if there are sovereign debt solvency issues in Japan.
And the future
One of the central questions facing all advanced economies has to be: is a Japanese future so bad? Japan has the highest healthy life expectancy in the world, and it is rising. Mean disposable household income is above the OECD average and has risen by more than 6% over the past 10 years. In the OECD, more than a third of people are at risk of falling
into poverty. In Japan, only around 12% of people are exposed to that sort that malign risk. Youth unemployment over the past 10 years has been exceptionally low and has fallen – as has long-term unemployment.
There are problems, for example, when it comes to the rights of “irregular” workers – many of whom are women – but in terms of economic insecurity Japan comes out relatively well. Across the OECD, 36% of people are financially insecure. In Japan, the figure is 15%.
Warwick Lightfoot
Warwick Lightfoot is an economist with specialist interests in monetary economics, public finance and labour markets. He has served as special adviser to Chancellors of the Exchequer and is the author of Margaret Thatcher: the economics of creative destruction and of America’s Exceptional Economic Problem
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