27 January 2016
<QQE Supplementary Measures: Follow-up Report>

Risks from Extending the QQE Policy—Bank of Japan’s JGB Purchases to reach Limits in June 2017
JCER Financial Research Team
Kazumasa Iwata (President of JCER)
Ikuko Samikawa (Principal Economist)
Eriko Takahashi (Economist)
Takuya Kimotsuki (Trainee Economist)1
How long can the BOJ keep buying JGBs?
Since the introduction of its qualitative and quantitative easing (QQE) program in April 2013, theBank of Japan (BOJ) has mopped up a massive amount of Japanese Government Bonds (JGBs) fromthe market, at a pace exceeding 7 trillion yen a month, and 9 trillion yen a month after the program’s
expansion at the end of October 2014. Players in the secondary JGB market, where the supply/demandbalance is becoming tighter, are beginning to whisper about limits to the BOJ’s QQE program.
On December 18, 2015, the BOJ introduced new measures to supplement existing QQE. These
include adding foreign currency-denominated loans and housing loans to the range of assets acceptedfrom banks as eligible collateral, which mainly consists of JGBs, and extending the average remaining
maturity of its JGB purchases. Private financial institutions need to hold a certain amount of JGBs as
collateral in financial transactions, and the extension of large-scale JGB purchases by the BOJ will,
therefore, make it difficult for them to keep buying JGBs. This report examines the extent to which
the latest supplementary measures (expansion of the range of eligible collateral) will encourage
private financial institutions to sell JGBs, and for how long the BOJ can keep buying JGBs. The
analysis is approached from two angles: long-term JGB issuance and redemption (JGB supply factors)
and the JGB holdings of financial institutions and investors (demand factors)2.
According to the BOJ’s Flow of Funds Accounts, central government securities and FILP (Fiscal
Investment and Loan Program) bonds, etc. held by the central bank as of 30 September 2015 totaled
898.5 trillion yen, increasing for the ninth consecutive quarter to reach a record level. A breakdown ofholdings by entity as of the same date shows that the BOJ, which has been making large-scale JGB
purchases under its QQE program, accounts for the largest share (30%), and its holdings hit a new
all-time high both in terms of scale and share (Figure 1). The entities with the highest proportion ofholdings after the BOJ are insurance companies (22%), financial institutions for small businesses
1Japan Finance Corporation Small and Medium Enterprise Unit
Previous studies estimating limits to the BOJ’s JGB purchases include Arslanalp and Botman (2015), and Kawano andSugisaki (2015). The latter conclude with respect to the limits to the BOJ’s JGB purchases that “the incentive for investors to
reduce their holdings any further is likely to dwindle away within the next 18-24 months.”2

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Japan Center for Economic Research
Financial Research Team

27 January 2016

including the Japan Post Bank (15%), domestic banks (11%) and pension funds (6%). Sectors withJGB holdings of 5% or less, such as the foreign sector and mutual aid insurance companies, are nottaken into consideration in this analysis because even on a quarterly basis, their holdings remain at alow level and do not change significantly.
Figure 1 BOJ is the Largest Holder of JGBs
300
250
200

(Tril. yen)
【JGB holdings by entity】
Central bankDomestic banks
Financial institutions for small businesses
Insurance
Overseas
Pension funds【Ratio of JGB holdings by entity(End of Sept 2015)】

Agriculture, Forestry and
Fisheries financial institutions
3%
Pension funds 4%
Mutual aid
insurance 4%
Overseas 5%

150
100

Public pension
6%

50

Domestic banks
11%(Quarterly)

0
00:1

02:1

04:1

06:1

08:1

10:1

Households
2%

12:1

14:1

Central bank30%

Insurance
22%

Financial institutions

15:3 for small businesses 13%

Note: “Financial institutions for small businesses” includes the Japan Post Bank.
Source: Bank of Japan, Flow of Funds AccountTo estimate the potential for extension of the JGB buying program, it is necessary to review various
long-term JGB transaction flows since the expansion of quantitative easing. This analysis considers
flows with respect to three sectors: the Japanese Government, the private sector and the BOJ (Figure2). The period during which the BOJ will be able to keep buying long-term JGBs (N years) can be
expressed by the following equation.
BOJ’s annual purchases × N years＝Net annual long-term JGB issuance × N years+ Amount available for sale by the private sector3
In the following pages, we estimate (i) annual purchases, (ii) issuance and (iii) amount available forsale in the above equation.
Figure 2 Flow of Long-Term JGBs

3

Since the BOJ focuses on purchasing longer-term bonds, treasury bills and long-term JGBs with less than a year remaining
to maturity (which due to the nature of data are difficult to distinguish from treasury bills), are not included in this analysis.
JGBs targeted at retail investors, which are not the target of BOJ purchases, are also excluded.

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Categorization of JGB Flows(i) Annual JGB Purchases
Let us begin by estimating the scale of purchases necessary for the BOJ to maintain the frameworkof its QQE program. For the BOJ to increase the monetary base at an annual pace of 80 trillion yen,
when buying JGBs, it must take into consideration the JGBs that reach maturity and fall off its balance
sheet. According to the latest information available, “under the current guideline for asset purchases,
the gross amount of the Bank's JGB purchases in 2016 is expected to increase to about 120 trillion yen
from about 110 trillion yen in 2015, due to an increase in the redemption of government bonds held by
the Bank at maturity.”4 Figure 3 shows the amount of purchases necessary based on the policy forlong-term JGB purchases announced by the BOJ.
Figure 3 Amount of JGB Purchases needed for the BOJ
Remaining Maturity of JGBs

Monthly JGB purchases asannounced by BOJ (100 mil. yen)

Up to 1 year
1 - 5 years
5 - 10 years
Over 10 years
15-year floating rate bond
10-year inflation indexed bond

1,000～3,000
36,000～60,000
18,000～36,000
15,000～30,000
1,200
400
Total

Purchases needed so that the BOJ
monetary base will increase by 80
tril. yen annually (100 mil. yen)
2.0
23,92847.9574,27726.9
323,03122.4
269,192
0.6
7,178
0.2
2,393
100.0
1,200,000% of total

Note : The estimation is based on the assumption that the BOJ’s annual purchase of long-term JGBs is 120 trillion yen. The
amount is divided proportionally according to the median value of monthly JGB purchases classified by remaining
maturity. The purchase sizes for floating-rate bonds and inflation-indexed bonds are bimonthly.
Source: Bank of Japan, Outline of Outright Purchases of Japanese Government Bonds from January 2016(ii) JGB Issuance
The Government’s long-term JGB issuance to the private sector will be JGB issuance for FY2016(ending March 2017) less short-term JGBs, etc., which amounts to 127.2 trillion yen. However, JGBs
that will reach maturity and fall from the private sector’s balance sheets through redemption/buy-backs by the Government can be calculated as 81.3 trillion yen5. Assuming that the pace of
issuance and redemption from FY2017 is the same as for FY2016, net annual JGB issuance will be
127.2 trillion yen less 81.3 trillion yen, which makes 45.9 trillion yen6.

4

Bank of Japan “Statement on Monetary Policy” (December 18, 2015)(http://www.boj.or.jp/en/announcements/release_2015/k151218a.pdf)
5
Please see Appendix for further details of JGB issuance and redemption. With respect to the redemption of FILP bonds, we
could not confirm the amount due to be redeemed and, therefore, simply used the amount of FILP bonds having less than ayear remaining to maturity as of the end of FY2014.
6
All figures are correct to one decimal place.

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Japan Center for Economic Research
Financial Research Team

27 January 2016(iii) JGBs Available for Sale
Next, we estimate the amount of JGBs that could be sold by the private sector. Various financial
institutions have different motives for holding JGBs. For example, banks need JGBs as collateral inforeign-currency-denominated transactions.
【BOX JGB Issuances and Assumptions regarding Redemptions】
JGB Trade between Government and Private Sector (45.9 tril. yen)
=JGB Issuance (127.2 tril. yen) - JGB Redemption/buy-backs (81.3 tril. yen)
JGB Issuance (127.2 tril. yen)=①Total JGB Issuance - ②T-bills issuance - ③BOJ rollovers - ④JGBs targeted at retail investors
Amount(Tril. yen)
①Total JGB issuance②T-Bills issuance③BOJ rollovers④Issuance for retail investors

Assumptions

Total of Construction Bonds, Special Deficit-Financing Bonds, Reconstruction
Bonds, FILP Bonds and Refunding Bonds
25.0 Excluded as T-bills are not targets of QQE purchases
Excluded as BOJ repurchases T-Bills for rollovers, which are not targets of
8.0
QQE purchases
2.0 Excluded as issuance for retail investors are not targets of QQE purchases

162.2

JGB Redemption/buy-backs (81.3tril. yen）=①JGB redemption - ②Short-term JGB redemption - ③Redemption of BOJ holdings + ④Buy-backs of private
sector holdings
Amount(Tril. yen)
①Total redemption②Redemption of T-Bills③Redemption of BOJ's JGB holdings④Buy-backs of Private sector's JGB holdings

Assumptions

Redemption of Regular Bonds (126.6 tril. yen, based on FY2015 budget plan),
146.1 FILP Bonds (19.5 tril. yen, FILP Bonds with 1 - 2 years remaining until
redemption at the end of FY2014)
Based on issuance for FY2014, excluded as T-bills are not targets of QQE
25.8
purchases
BOJ announced that its JGB purchases will reach 120 trillion yen in 2016, of
40.0 which 80 tril. yen accounts for its monetary base target. Excluded the remaining
40 tril. yen which we assume are redeemed
1.0 Based on estimation of FY2016 buy-back amount from financial institutions

Note: All figures are correct to one decimal place.
Source: Based on Ministry of Finance, Bank of Japan documents

In the baseline scenario (Scenario 1; before the announcement of BOJ’s supplementary measures
for QQE), we estimate that the amount of JGBs that can be sold by the private sector as 148.1 trillion
yen as of the end of March 2015. In our alternative scenario (Scenario 2; after the QQE supplementarymeasures), we estimate JGBs that can be sold at 128.6 trillion yen, as of September 2015. Though thereference dates differ, for both scenarios, we calculate that the limits to JGB purchases will be reachedin June 2017 (Figure 4). On the other hand, Arslanalp and Botman (2015) estimate, as of December
2014, that the amount the private sector could sell is 220 trillion yen, and that the limits to purchases
will be reached by the end of 2018 at the latest, allowing for more leeway than JCER’s analysis. The
difference in reference dates is the main cause for the differing estimation results between JCER and
Arslanalp and Botman (2015).

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Figure 4

BOJ will likely face JGB Purchasing Limits in June 2017
JCER scenarios for potential portfolio rebalancing

IMF scenario

Assumptions for Scenario 1(BASELINE SCENARIO: Before
QQE supplementary measures)

JGBs
available
for sale(Tril. yen)

Assumptions for Scenario 2(ALTERNATIVE SCENARIO:
After QQE supplementarymeasures)

Banks

Continue to reduce JGB holdings to
5% of total assets

74.4

Scenario 1 + foreign currencydenominated loans on deeds (7 tril.
yen) + housing loans via a trust
scheme (6.9 tril. yen)Japan Post
Bank

40 tril. yens-worth available (JGB
holdings at the end of FY2014 excl.
held-to-maturity bonds)

Insurancecompanies

Shift out of JGBs to foreign bonds,
raising foreign holdings to 25% of
total assets

JGBs
available
for sale(Tril. yen)

Continue to reduce
62.6 JGB holdings to 5% of
total assets

76.0

40.0 Same as Scenario 1

33.6 Same as above

100.0

1.8 Same as Scenario 1

Shift out of JGBs toforeign bonds, raising
1.8
foreign holdings to
25% of total assets

Japan Post
Insurance

Same as above

19.2 Same as Scenario 1

17.9 Same as above

Public pension
funds

Shift to new asset allocation ratio
for domestic bonds set at 35% ±10%12.7 Same as Scenario 1

12.7

Total

148.1

Limit on JGB
purchases

JGBs
available
for sale(Tril. yen)

Assumptions

Shift to new asset
allocation ratio fordomestic bonds set at
35% ± 10%

June 2017

11.0
220.0

128.6

June 201733.0

2017～18

JGB Purchases to reach Limits in June 2017, same as before Supplementary Measures
Even taking the supplementary measures fully into account, the extra room for JGB purchases is, at
most, only 13.9 trillion yen, reflecting expansion in the range of eligible collateral (Figure 5). We
conclude, therefore, that JGB purchases will continue until June 2017, unchanged from our previous
estimate results before the supplementary measures (Scenario 1). This also reflects the fact that, under
the FY2016 JGB Issuance Plan (included in Scenario 2), gross long-term JGB purchases required toachieve the yearly target expansion in the monetary base of 80 trillion yen increased because of
decreased JGB issuance and increased redemptions of JGB holdings by the BOJ.
Figure 5 After QQE Supplementary Measures
JGB holdings (End of Sept 2015)①Totalassets(Tril. yen)

②Total
JGB
holdings(Tril. yen)②/①
Ratio (%)

Banks
Japan Post BankLife insurance companies
Japan Post Insurance
Property insurance companies
Public pension funds

1,004.6
207.2
281.1
84.9
30.8
177.0

98.9
92.8
101.9
46.7
5.8
74.7

10
45
36
55
19
42

Total

1,785.6

420.8

24Previous analysis(Scenario 1)

Scenario 2 (After QQE supplementary measures)

Shift in ratio（％）③Total JGB
holdings after
shift(Tril. yen)

5
―
36
34
13
35

50.2
59.2
101.9
28.9
4.0
62.0

13.9
0.0
0.0
0.0
0.0
0.0

62.6
33.6
0.0
17.9
1.8
12.7

74.4
40.0
0.0
19.2
1.8
12.7

306.2

13.9

128.6

148.1

合計

②-③+④
④
JGBs available
Supplementary
for salemeasures(Tril. yen)

JGBs available
for sale(Tril. yen)

Source: Summary Reports released by banks and other financial institutions and their websites

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Japan Center for Economic Research
Financial Research Team

27 January 2016

JGB Sales by Life Insurance Companies are unlikely
Before the Announcement of the supplementary measures, the BOJ had made the averageremaining maturity of its long-term JGB purchases 7-10 years, but the supplementary measures madeit easier for the BOJ to purchase long-term JGB by extending this to around 7-12 years from January
2016. If we look at JGB holdings by remaining maturity as of the end of March 2015, most long-termand super long-term bonds with remaining maturities exceeding 10 years are held by life insurancecompanies (including Japan Post Insurance), and the supplementary measures may be aimed at
encouraging life insurance companies to sell JGBs (Figure 6).
Figure 6 Long-term Bonds held mostly by Life Insurance Companies【JGB Holdings by Entity (End of March 2015, 100 mil. yen)】Banks

253,471

323,395

291,018

127,070

99,77653,345

Outstanding
amount1,148,074

Japan Post Bank

191,407328,944

154,549

164,866

205,906

21,9981,067,670

Life insurance companies

14,83024,94433,35843,38481,545

789,776

987,837

Japan Post Insurance

52,392

81,08734,935

17,533

27,842

267,076

480,864

Property insurance companies

7,298

7,504

8,900

8,021

10,644

22,286Up to 1 year

1 - 3 years

3 - 5 years

5 - 7 years

7 - 10 years

Over 10 years

Public pension funds

64,653
746,578

Total amount

4,495,677

Source: Summary Reports released by banks and other financial institutions

However, if we look at the financial statements of life insurance companies as of the end of
September 2015, Japanese life insurance companies, with the exception of Japan Post Insurance, are
not actively selling JGBs (Figure 7). From the perspective of life insurance companies, insurance
policies are long-term, yen-denominated liabilities. Therefore, life insurance companies holdlong-term JGBs as stable assets to avoid a mismatch of maturities and a mismatch of currencies
between their assets and liabilities. Yen bonds such as local government bonds and corporate bonds
have less liquidity than JGBs, and foreign bonds also have limitations because they involve exchangerisks. Life insurance companies do not have current deposit accounts with the BOJ, and are, therefore,
not entitled to the 0.1% interest paid on the excess reserve held in that account. Since life insurancecompanies are unlikely to sell their JGB holdings until they take the risk of reinvestment, we presume
that aggressive sales by insurance companies are unlikely.
Figure 7 JGB sales by Domestic Insurance Companies excluding Japan Post Insurance Unlikely

Source: Summary Reports released by banks and other financial institutions

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Japan Center for Economic Research
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27 January 2016

Is the Extension of QQE through Reduction of Monetary Base Target an Option?
If QQE continues, leading to a situation where the BOJ faces undersubscription in its JGB
purchasing operations, this could have various side effects. BOJ Board Member Takahide Kiuchi
acknowledged that it would be difficult for the BOJ to keep buying JGBs at the current annual pace of
120 trillion yen. He went on to say that if the market glimpsed the limits to quantitative easing,“market interest rates could rise suddenly and deal a massive blow to the economy” and “it isimportant to shift to stable operations (by reducing the pace of purchases).”7 According to our
calculations, if the BOJ were to reduce its monetary base expansion target from the current 80 trillion
yen annual pace to 45 trillion yen, as proposed by Board Member Kiuchi, the BOJ would be able tocontinue JGB purchases for longer and QQE could be maintained until March 2019, past Governor
Haruhiko Kuroda’s five-year-term ending April 2018.
While the supplementary measures will reduce short-term liquidity risk, they are not enough todispel market concerns from a medium-to-long-term perspective in terms of the potential to extend the
QQE. There are, of course, risks if the BOJ should start tapering its assets purchases before achieving
its price stability target. However, the BOJ must surely consider a range of policy measures before its
own credibility is damaged through undersubscription.
Furthermore, the amount of JGBs that the private sector could sell depends on how much the BOJ
pays to purchase long-term JGBs. If JGB buying operations at prices far higher than actual market
conditions were announced, bids might increase8. Also if measures to alleviate potential collateral
constraints on banks were expanded further, this could push up the amount of JGBs the private sector
could sell. Currently, efforts are being made to further expand the Securities Lending Facility throughwhich the BOJ lends JGBs back to dealers, to prevent settlement failures in JGB transactions. Throughmore widespread use of this facility, the amount of outstanding JGBs held to meet the collateral needsof banks may also decrease.
References
Arslanalp, S., & Botman, D.P.J. （ 2015 ） . Portfolio Rebalancing in Japan : Constraints and
Implications for Quantitative Easing. IMF Working Paper No. 15/186.
https://www.imf.org/external/pubs/ft/wp/2015/wp15186.pdf
Kawano, K., & Sugisaki, K. (2015). Government Bond Supply and Absorption. Morgan Stanley
MUFG Securities.
7

Nikkei morning edition (Dec. 4, 2015), p.5 “BOJ Board Member Kiuchi says 2% Inflation Target beyond Japan’s
Economic Capacity”
8
However, when the BOJ, which uses the amortized cost method, buys long-term JGBs at prices far higher than their facevalue, it must amortize the difference between the purchase price and the face value in equal amounts over the remaining
term. Therefore, if the BOJ were to purchase JGBs with a short time to maturity at prices far higher than their face value, thecentral bank’s annual interest expenses would increase and this could reduce its annual profits.

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Appendix A. Sales of JGBs by Entity(i) Domestic Banks and the Japan Post Bank
Banks need JGBs as collateral in funding transactions. According to Arslanalp and Botman (2015),
domestic banks could reduce their JGB holdings to 5% of their total assets, bearing in mind theircollateral needs, which center on short-term bonds. As shown in Figure A1, JGB holdings equivalent
to just under 5% of total assets is the minimum level of JGBs held by domestic banks historically and,similarly, for this report’s baseline scenario, we regarded reduction to 5%, in line with the IMF
Working Paper, possible. On this basis, the amount that private-sector banks, excluding Japan Post
Bank, could sell is 48.7 trillion yen9.
Figure A1 The Ratio of JGB Holdings to Total Assets for All Banks was around 5% in the 1990s
(%)

20
18
16
14
12
10
8
6
4
2

(Monthly)

0
95/01

97/01

99/01

01/01

03/01

05/01

07/01

09/01

11/01

13/01

15/10
15/01

Source: Bank of Japan, Assets and Liabilities of Domestically Licensed Banks (Banking Accounts)

Arslanalp and Botman (2015) take the view that, like other banks, Japan Post Bank can reduce its
JGB holdings to 5% of total assets and assumes that it could sell JGBs worth 100 trillion yen. We
regard this as a slight overestimation and the grounds for this are explained below.
If we compare the balance sheets of Japan Post Bank with those of other banks in Figure A2, theimpact of lending business regulations is obvious. In this report, we judged that it would be difficult interms of portfolio management for Japan Post Bank to reduce its JGB holdings to 5% of total assets inline with the IMF Working Paper given that it is not allowed to divert proceeds from the sale of JGBs
to lending. However, as of September 2015, Japan Post Bank’s total JGB holdings amounted to 92.8
trillion yen, of which 59.2 trillion yen worth were in held-to-maturity-bonds. Therefore, we estimated9

Jun Ishii, Chief fixed-income strategist at Mitsubishi UFJ Morgan Stanley Securities, estimates the collateral needs of city
banks and regional banks combined at around 40–60 trillion yen (Shukan Toyo Keizai February 14, 2015 issue“Unconventional
Negativeinterest
rates
stemming
from
BOJ’s
bond
buyingprogram”)(http://toyokeizai.net/articles/-/60244). Outstanding holdings after sale of 40.4 trillion yen as estimated in this report arewithin the range estimated by Ishii.

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Japan Center for Economic Research
Financial Research Team

27 January 2016

conservatively that the Japan Post Bank could sell the remaining JGBs (33.6 trillion yen)10.
Figure A2 Portfolio Rebalancing from JGBs to Lending looks stuck for Japan Post Bank

Loans

【Portfolio of Japan Post Bank】
End of FY2014
End of Sept 2015
Balance
Balance% of total% of total(Tril. Yen)
(Tril. Yen)
3
1.3
3
1.3

【Portfolio of Domestic Banks excl. Japan Post Bank】
End of Sept 2015
Balance% of total(Tril. Yen)
Loans
530
52.7

Securities

156

75.0

150

72.3 ⇔ Securities

241

24.0

(of which are JGBs)

107

51.3

93

44.8

107

10.6

(of which are JGBs)

Other assets

49

23.6

55

26.5

Other assets

234

23.3

Total assets

208

100.0

207

100.0

Total assets

1,005

100.0

Source: Japan Post Bank, Japanese Bankers Association(ii) Life Insurance and Property Insurance Companies
The entities with JGB holdings comparable to those of the banks are the life insurance and property
insurance companies. Since the main products of insurance companies are long-term policies
denominated in Japanese yen, insurance companies set aside policy reserves to cover future claims.
JGBs make up the majority of policy reserves. However, with the fall in JGB yields caused bymonetary easing, in recent years, insurance companies have also shifted out of JGBs into foreign
bonds to supplement their earning power.
Arslanalp and Botman (2015) assume that insurance companies will raise their foreign holdings to
25% of assets, and will sell JGBs accordingly. However, the foreign holdings of Japanese life
insurance companies, with the exception of Japan Post Insurance, had already reached 25% by the endof September 2015. Therefore, in this analysis, we project only sales by property insurance companies(1.8 trillion yen).
If we compare the asset structure of Japan Post Insurance with that of other life insurancecompanies, we see that Japan Post Insurance has a low percentage of foreign bonds (Figure A3). Japan
Post Insurance President Ishii Masami declared, in November 2015, that Japan Post Insurance would
raise its ratio of investment in equity and foreign bonds from 4% to 10%11. In our baseline scenario,
we assume that Japan Post Insurance, like other life insurance companies, will increase its foreign
bond holdings to 25%, and estimated the amount of JGBs that Japan Post Insurance could sell at 17.9
trillion yen.

10

This estimate was deemed generally valid, given that Japan Post Bank has, in fact, reduced its JGB holdings by 45.3
trillion yen from the beginning of FY2013 when QQE began through to the second quarter of FY2015, and if it continues tosell JGBs at the current quarterly pace of 4.5 trillion yen over the coming two years, total sales will amount to 36 trillion yen.
11
Nikkei morning edition (Nov. 5, 2015), p.5 “Two postal financial institutions, stocks towards additional sales”

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Figure A3 Shifting to Foreign Securities looks yet to be Completed for Japan Post Insurance【Portfolio of Domestic Insurance Companies
excl. Japan Post Insurance】
End of Sept 2015
Balance% of total(Tril. Yen)

【Portfolio of Japan Post Insurance】
End of FY2014
Balance% of total(Tril. Yen)
Securities(of which are JGBs)

End of Sept 2015
Balance% of total(Tril. Yen)

66

78.1

66

78.1

48

56.6

47

55.2

Securities(of which are JGBs)

232

82.4

102

36.3

2

2.3

4

4.2 ⇔

72

25.5

Loans
Other assets

10
9

11.8
10.2

9
9

11.1
10.7

Loans
Other assets

26
23

9.4
8.2

Total assets

85

100.0

85

100.0

Total assets

281

100.0

(of which are foreign bonds)(of which are foreign bonds)

Source: Summary Reports released by Japan Post Insurance, Life Insurance Association of Japan(iii) Pension Funds
The Government Pension Investment Fund (GPIF) and Japan’s three mutual aid associations12 haveset forth portfolio benchmarks (investment policy) shown in Figure A4. Assuming that major pension
funds have domestic bond holdings in line with the investment policy, the amount of JGBs they could
sell is estimated at 12.7 trillion yen13. The GPIF has been rebalancing its portfolio in line with theinvestment policy since 2013, and the three mutual aid associations have also been steadilytransitioning to the new model since October 2015.14
Figure A4 Portfolio Shift and the Amount of JGBs Available for Sale by Pension Funds
Domestic bonds
35%
±10%

【Portfolio Benchmarks of Pension Funds】
Domestic stocks
Foreign bonds
25%
15%
±9%
±4%

Foreign stocks
25%±8%【Asset Structure of Pension Funds (end of FY2014) and After Shift in Portfolio Allocation Ratios】
Domestic bonds
Domestic stocks
Foreign bonds
Foreign stocks
Short-term assets etc
Balance
Balance
Balance
Balance
Balance% of total% of total% of total% of total% of total(tril. yen)(tril. yen)(tril. yen)(tril. yen)(tril. yen)

Total balance(tril. yen)

GPIF

56.7

39.4

31.7

22.0

18.2

12.6

30.1

20.9

7.3

5.1

National public service personnel

5.2

66.4

1.0

12.8

0.2

2.6

1.0

12.2

0.5

6.0

7.8

Prefectural government personnel

10.6

50.6

4.5

21.6

2.4

11.4

3.2

15.1

0.3

1.3

21.0

143.9

Private school mutual aid

2.1

50.7

0.6

15.3

0.6

13.4

0.6

14.1

0.3

6.5

4.2

Total ① (End of March 2015)

74.7

42.2

37.9

21.4

21.3

12.1

34.8

19.7

8.3

4.7

177.0

Balance ②

61.9

35.0

44.2

25.0

26.5

15.0

44.2

25.0

0.0

0.0

177.0

Difference (②-①)

-12.7

-7.2

6.4

3.6

5.2

2.9

9.4

5.3

-8.3

-4.7

0.0

After
portfolio
allocation shift

Note: The entire amount of domestic bonds is assumed to be long-term JGBs.
Source: The websites of the Government Pension Investment Fund (GPIF), the Federation of National Public Service
Personnel Mutual Aid Associations, the Mutual Aid Association of Prefectural Government Personnel, and thePromotion and Mutual Aid Corporation for Private Schools of Japan

12

Japan’s three major mutual aid associations are Federation of National Public Service Personnel Mutual Aid Associations(KKR), The Mutual Aid Association of Prefectural Government Personnel, and The Promotion and Mutual Aid Corporation
for Private Schools of Japan.
13This report assumes that all domestic bonds held by public pension funds are JGBs.
14
Government Pension Investment Fund “Target Asset Allocations (Model Portfolio)” (March 20, 2015)(http://www.gpif.go.jp/public/activity/pdf/model_portfolio.pdf)

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Appendix B. Expansion of the Range of Eligible Collateral
Most of the 84.9 trillion yen in collateral accepted by the BOJ (face value as of the end of
December 2015) consists of long-term JGBs (43.3 trillion yen) (Figure B1). The supplementarymeasures will expand the range of collateral that financial institutions are allowed to deposit with the
BOJ (eligible collateral) and, as a result, the long-term JGBs previously held in the BOJ’s custody
may be substituted with other collateral, and the long-term JGBs returned to the financial institutions
may be sold to the BOJ.
Figure B1 Almost Half of the Collateral Accepted by BOJ consists of Long-term JGBs
160

(Tril. yen)

140
120

Other

Corporate deed loans

Government deed loans

Long-term JGBs

100
80
60
40
20

(Monthly)

0
10/01
10/07
11/01
11/07
12/01
12/07
13/01
Note: Each asset type is shown in face value.
Source: Bank of Japan, Collateral Accepted by the Bank of Japan

13/07

14/01

14/07

15/01

15/07 15/12

As part of its supplementary measures, the BOJ has decided to accept (1) foreign
currency-denominated loans on deeds and (2) financial institutions' housing loan portfolios using atrust scheme, etc. as eligible collateral, and we shall, therefore, look at each of these assets in turn.
With respect to housing loans, Governor Haruhiko Kuroda explained at the press conference
following the Monetary Policy Meeting on December 18, 2015 that housing loans are not suchsignificant amounts individually, but trading housing loan portfolios in the form of trust beneficiaryinterests was actually a common market practice, and the BOJ would, therefore, also accept
appropriate portfolios as collateral15, and we will, therefore conduct our analysis in line with thisapproach.

(i) Foreign Currency-denominated Loans on Deeds
According to the comments made by Governor Kuroda at the Governor’s Press Conference on
December 18, 2015, U.S. dollar-denominated loans on deeds to Japanese corporations amount to15

Bank of Japan “Governor Press Conference Summary” (December 21, 2015)(http://www.boj.or.jp/announcements/press/kaiken_2015/kk1512d.pdf)

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Japan Center for Economic Research
Financial Research Team

27 January 2016

around 10 trillion yen. When the BOJ accepts collateral from financial institutions, it calculates thevalue of the collateral by multiplying the market value of the pledged asset or the outstanding
principal amount by an assessment rate (haircut rate) according to the remaining term or risk (FigureB2). Yen-denominated loans on deeds are already certified as the BOJ’s eligible collateral, and thehaircut rate is set at 70~96% depending on the remaining term. In the case of foreign
currency-denominated loans on deeds, we apply a haircut rate of 80%, which is the average of those
rates for yen-denominated loans for 3-5years(85%) and for 5-7years(75%). In addition, we multiply ahaircut rate for foreign currency-denominated bonds of 88%, whereby

the amount of foreign

currency-denominated loans on deeds that financial institutions could deposit with the BOJ as
collateral will become around 7 trillion yen (i.e. the outstanding amount of foreign
currency-denominated loans on deeds in the market multiplied by a haircut rate of 80% and by 88%).
Figure B2 BOJ Eligible Collateral and their Values (Haircut rate)
Remainingmaturity
Up to 1 year
1 - 3 years
3 - 5 years
5 - 7 years
7 - 10 years
10 - 20 years
20 - 30 years
Over 30 years

Applicable rate of collateral tooutstanding principal balance (%)
Government deed
Asset-backed bonds Corporate deed loans
loans
97
96
97
97
91
95
97
85
90
96
75
85
96
70
80
95
―
―
94
―
―
91
―
―

Applicable rate of collateral to market price (%)
JGBs
99
99
99
98
98
97
96
93

Foreign bonds（converted to yen）
88
88
88
88
88
88
88
87

Source: Bank of Japan, Eligible Collateral

However, if we look at yen-denominated loans on deeds to corporations, as of the end of December
2015, the amount deposited with the BOJ as collateral by financial institutions stood at 4.2 trillion yen,accounting for only 1% of total loans on deeds of Japanese financial institutions, which amounted toaround 400 trillion yen (end of November 2015, all currencies). It is, therefore, also possible that theamount of foreign currency-denominated loans on deeds used as BOJ collateral will also be less than
the abovementioned 7 trillion yen. Moreover, as explained by Governor Kuroda in his speech to the
Meeting of Councillors of Nippon Keidanren on December 24, 2015, when financial institutions
deposit loans on deeds to corporations with the BOJ as collateral, consent by the debtor is required16,
and this may also prevent their use as collateral.
(ii) Financial Institutions’ Housing Loans as Collateral through a Trust Scheme
An individual housing loan amounts to tens of millions of yen, but it is also possible to turn housing
16

Bank of Japan “At the Turning Point - Speech at the Meeting of Councillors of Nippon Keidanren (Japan Business
Federation) in Tokyo” (December 24, 2015)(http://www.boj.or.jp/en/announcements/press/koen_2015/ko151224a.htm/)

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Japan Center for Economic Research
Financial Research Team

27 January 2016loans into trust beneficiary interests worth hundreds of millions or billions of yen by using a scheme
for entrusting a portfolio of housing loans to a trust bank, etc.17 Under the latest supplementarymeasures, financial institutions can turn housing loans into trust beneficiary interests and deposit themwith the BOJ as collateral.
Outstanding housing loans by sector as of the end of September 2015 were 116 trillion yen fordomestic banks and 15.8 trillion for the Shinkin Bank. As of the end of September 2015, 7.7 trillion
yen or 6% of these loans were held in the form of trust beneficiary interests. What is more, the amountof loans held in the form of trust beneficiary interests is trending downward (Figure B3). Details of thescheme for the BOJ’s acceptance of housing loan portfolios as collateral will be determined atsubsequent policy meetings. However, unless procedures are simplified considerably, there is little
prospect of a turnaround in the amount of loans held in the form of trust beneficiary interests (Figure5). As for the haircut rate, in the case of asset-backed securities, which are also eligible collateral as
securitized products, the haircut rate is set at around 90% of market value (Figure B3). Assuming thatthe haircut rate is also 90% for trust beneficiary interests backed by housing loans, the maximum
amount that financial institutions could deposit with the BOJ as eligible collateral is 6.9 trillion yen,i.e. the outstanding amount of 7.7 trillion yen multiplied by a haircut rate of 90%.
Figure B3 Amount Outstanding of Securitized Products continues to fall in the Long-term
50(Tril. yen)
Asset-backed CP
Asset-backed securities
Housing loans
Trust beneficiaryrights
Other

45
40
35
30
25
20
15
10
5
0
08:1 08:3 09:1 09:3 10:1 10:3 11:1 11:3 12:1
Source: Bank of Japan, Amounts Outstanding of Securitized Products(Quarterly)
12:3

13:1

13:3

14:1

14:3

15:1

15:3

Since the above estimates assume that all existing trust beneficiary interests are held by financial
institutions and are deposited in full with the BOJ, if trust beneficiary interests are held by investorsother than financial institutions, there is less room for them to be deposited as collateral. In fact, theportion of the 14.0 trillion yen in outstanding asset-backed securities (as of the end of September2015) deposited with the BOJ as collateral amounts to just 1.3 billion yen, which is less than 1% of
the total market.
17

Since the Revision of the Trust Law in 2006, “Declaration of Trust (Self-trust)” has been made possible.

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Appendix C. Is 10 trillion yen the Maximum Amount of Other Assets that could be Sold?
Given the limited room for long-term JGB purchases, could the BOJ not increase its purchases ofother assets instead? The BOJ has already purchased Exchange Traded Funds (ETFs), Real Estate
Investment Trusts (REITs), corporate bonds, and commercial paper (CP). Other assets the BOJ could
purchase in the future include local government bonds and government agency bonds. Figure C1
shows the results of estimating the amount of each class of assets the BOJ could buy. The amount ofassets other than long-term JGBs the BOJ could buy was no more than around 10 trillion yen in total.
The following section examines this in more detail.
Figure C1 Estimation Result for the Amounts of Various Assets excluding JGBs Purchasable by BOJ
Amount purchasable by BOJ(JCER assumptions)

Types of assets
ETFs

Further purchases
Amount alreadypurchased by BOJ (maximum amount,tril. yen)(tril. yen)
6.2
1.5/year

Corporate bonds

50% of yearly increase (estimated 3 tril. yen) of purchasable brands
Up to 5% of agg. market capitalization of AA credit ratings (8.6 tril.
yen as of Nov 2015)
Up to 5% of amount outstanding (70.8 tril. yen as of June 2015)

CPs

No further purchases

2.2

0.0

Local government bonds

Up to 5% of amount outstanding (74.4 tril. yen as of June 2015)

0.0

3.7

Government-related bonds

Up to 5% of amount outstanding (76.8 tril. yen as of June 2015)

REITs

Total

0.3

0.2

3.2

0.3

0.0

3.8

11.9

9.5

Note: The maximum purchasable amount of ETFs is estimated as the amount held for at least one year.
Source: Bank of Japan, Flow of Funds Account(i) Index-linked Exchange Traded Funds (ETFs)
The BOJ began buying ETFs at the end of 2010. To minimize market intervention, the upper limitof purchases was set at 1 trillion yen per year under the QQE program introduced in April 2013, and 3
trillion yen per year from the additional easing commenced in October 2014, and the scope ofpurchases was also limited to 20 issues18. Purchases in 2015 amounted to 2.8111 trillion yen by theend of November, within eyeshot of the annual purchase upper limit of 3 trillion yen. On a stock basis,the outstanding amount of ETFs held by the BOJ as of the end of September 2015 was 6.2 trillion yen,which is equal to 16.0% of the entire ETF market, and looking solely at the 20 issues targeted forpurchase by the BOJ, the BOJ’s share is abnormally high at 49.3% (Figure C2).

18

More specifically, only products that are linked to the Tokyo Stock Price Index (TOPIX), Nikkei Stock Average (Nikkei
225) or JPX Nikkei index 400 (JPX Nikkei 400) (as of the end of November 2015, 20 issues out of 195).

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Figure C2 BOJ now holds the Large Part of ETFs in the Market
60
50

(%)

(Trillion yen)Agg. Market Capitalization of other ETFs (RHS)
Agg. Market Capitalization of BOJ purchasable issues (RHS)
Ratio of BOJ holdings to BOJ purchasable issues

40

60【ETF Market (Trillion yen)】

50

TOPIX, Nikkei stock avg.,
JPX Nikkei Index 400

40

30

30

20

20

10

10
(Monthly)

0
0
15/11
11/01 11/07 12/01 12/07 13/01 13/07 14/01 14/07 15/01 15/07
Source: Bank of Japan, NEEDS-FinancialQUEST

Other
ETFs
28.5

6.5
14.2
7.7

BOJ
holdings
(46%)
Other
holdings(54%)

Agg. Market Capitalization
42.7 trillion yen(End of November 2015)

In this report, we strictly set the upper limit on the BOJ’s holdings of these 20 issues at 50%, fromthe viewpoint of avoiding excessive market intervention. Since its current share is close to 50%, any
additional purchases would be made through growth in total value of the ETF market. The total
market value of the issues eligible for purchase by the BOJ was 6.6 trillion yen at the end of
September 2013, 9.1 trillion yen at the end of September 2014 (137.5% of the same period of theprevious year), and 12.7 trillion yen at the end of September 2015 (139.9%). If we simplify this andassume that the total market value increases at an annual pace of 3 trillion yen, then the amount thatthe BOJ can purchase will increase at an annual pace of 1.5 trillion yen. If the amount of purchases isincreased, the upper limit on the ratio held will have to be raised.
(ii) Real Estate Investment Trusts (REITs)
Moving on to REITs, as with ETFs, the BOJ began purchasing REITs at the end of 2010. Its current
buying limit is 90 billion yen per year and there are other restrictions, for example, the BOJ can only
buy REITs rated AA or higher (as of the end of November 2015, 29 issues out of 52) and the buying
limit per issue is set at 5% of total issued and outstanding investment units19. In 2015, the amount ofpurchases reached 87.3 billion yen by the end of November 2015. So is there any room for expansion
in the amount of REIT purchases?
Figure C3 shows a breakdown of outstanding issues by rating and the share of the total market
value held by the BOJ. As of the end of November 2015, the total market value of the AA-rated issues
eligible for purchase by the BOJ amounted to 8.6 trillion yen, and AA-rated issues account for the
majority (86=1/7%) of the REIT market. The share held by the BOJ is 2.5% of the total market and3.1% of AA-rated issues.

19

In addition, purchases are limited to REITs whose purchase and sale have been transacted on a financial instruments
exchange 200 days or more per annum with a total trading value of 20 billion yen or more per annum.

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Japan Center for Economic Research
Financial Research Team

27 January 2016

Figure C3 BOJ Purchases of Real Estate Investment Trust is also reaching its Limit(Trillion yen)
No Credit Rating (Agg. Market Capitalization)
A-Rated (Agg. Market Capitalization)
AA-Rated (Agg. Market Capitalization)
BOJ holdings ratio (RHS)
BOJ purchase limit (RHS)
5% line (RHS)

12
10
8
6

(%)

30
25
20
15

4

10

2

5

(Monthly)
0
0
11/01
11/07
12/01
12/07
13/01
13/07
14/01
14/07
15/01
15/0715/11
Note: Maximum purchasable amount for the BOJ = Market value of AA-rated REIT x 5%
Source: Bank of Japan, NEEDS-FinancialQUEST, Japan Credit Rating Agency, Ltd., Rating and Investment Information,
Inc.

Since the REIT issues held by the BOJ are not made public, it is impossible to verify limits topurchases by issue. Here, we assumed that the value of REITs the BOJ could purchase wasapproximately 5% of the total market value of AA-rated issues and estimated that the amount that
could be additionally purchased was 165.3 billion yen20.
Assuming that market size and purchase limits remain the same, the BOJ will only be able to keepbuying REITs for a remaining 1.4 years. While some argue that another option for QE expansion is tolower eligibility for purchase from an AA rating to an A rating, this would not lead to any substantial
increase in the purchase limit as the total market value of A-rated issues as of the end of November
2015 was no more than 1.4 trillion yen. Raising the upper limit on the holding ratio is also likely to bedifficult to achieve in view of the impact on REIT control and market supply and demand.

(iii) Corporate Bonds and CPs
Can increasing purchases of corporate bonds and CPs be an option? The BOJ is still implementing
reinvestment measures, maintaining corporate bond holdings of around 3.2 billion yen and CP
holdings of around 2.2 trillion yen21. While the BOJ’s share of the CP market is high and further
purchases would not be easy, the BOJ’s share of the corporate bond market is just 4% and there isconceivably room for additional purchases. If the BOJ increased its holdings, setting an upper limit of
5% of the market in the same way as for REITs, this would mean an increase of 0.3 trillion yen per
year.

20

Calculated by assuming that the BOJ purchases 5% of the total market value of AA-rated issues (430.0 billion yen) and by
deducting the BOJ’s holdings as of the end of November 2015 (264.7 billion yen).
21
Bank of Japan “Expansion of Qualitative and Quantitative Easing” (October 31, 2014)(https://www.boj.or.jp/announcements/release_2014/k141031a.pdf)

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Japan Center for Economic Research
Financial Research Team

27 January 2016(iv) Local Government Bonds and Government Agency Bonds
Although not currently purchased by the BOJ, quasi-government-bond-type bonds in the form of
local government bonds and government agency bonds (comprised of government-guaranteed bonds,
non-government-guaranteed bonds, and FILP agency bonds) could also be included in the scope of
additional purchases. As of the end of June 2015, outstanding local government bonds and outstanding
government agency bonds amounted to 74.4 trillion yen and 76.8 trillion yen respectively, and themarket is similar in size to the corporate bond market.
If the BOJ bought both types of assets, the low level of liquidity would be a concern. Looking at theannual turnover (frequency of sales and purchases) of each type of asset, we see that turnover is much
lower for local government bonds (0.3), government-guaranteed bonds (0.6) and FILP agency bonds(0.4) than for JGBs (10.0), and that even if the BOJ were to buy them, the scale of such purchases
would most likely be limited. If the BOJ purchased such assets in the same way as REITs andcorporate bonds until it held a 5% market share, it would be able to purchase 3.7 trillion yen in local
government bonds and 3.8 trillion yen in government agency bonds.
Based on the above, the maximum amount of assets other than JGBs the BOJ could purchase is no
more than about 10 trillion yen in total. From a quantitative perspective, there are not really any
alternative assets to long-term JGBs. Also considering the risks to the BOJ of purchasing theindividual assets and the question of excessive market intervention, this is also not the ideal way tosustain its current QQE program.

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