FIRST PLACE: Domestic vs Foreign Holders of Public Debt: Is Ireland’s Lack of Home Bias an Issue?
Lily Joblin – First Place
Introduction
As the global economy rapidly expands, there becomes an increasing pressure for governments to intelligently balance debt between domestic and foreign holdings– in many cases, it becomes a decision between growth and resilience. Governments are balancing a need for national investment and insular policy that prevents shocks with necessary room for economic growth. Ireland’s own debt ownership structure has evolved over the years, though it remains primarily focused on foreign investors (Central Bank of Ireland, 2023). While a diversified investor base provides access to global capital markets, it also exposes the economy to external shocks and financial volatility (OECD, 2024). This essay examines whether Ireland’s relatively low home bias in government debt holdings poses economic or financial stability concerns. By analyzing Ireland’s debt composition, comparing it to other economies, and assessing potential risks, this essay aims to determine if measures should be taken to encourage domestic investment.
Defining Home Bias: Irish and Global Contexts
To comprehensively understand both the risks and merits of home bias, one must first understand its definition implications in relation to public debt holdings.
“Home bias” can be defined as a proclivity – either by individual investors or governments – to hold wealth in domestic stocks. Home bias is overwhelmingly common among private investors. There are several reasons for this proclivity, but can mostly be boiled down to one key concept: people are simply more likely to prefer to invest in their familiar home country (Proinsias O’Mahony, 2019).
On its face, this seems harmless and even expected. However, there’s been an influx of data that suggests home bias among investors is unnecessarily warping and distorting the global market, helping rich countries stay richer (Proinsias O’Mahony, 2019). When more money stays in large markets like the United States, it creates an uneven distribution of global wealth, which can prove problematic for countries smaller in both population and market size– of which Ireland is both, in comparison to other economic powerhouses (Proinsias O’Mahony, 2019).
But when it comes to government debt specifically, the issue is not nearly as clear. On one hand, home bias can provide financial stability via insulation: when a country is highly invested in its own assets, it becomes insulated from external market fluctuations (Reuters Staff, 2025). Countries with strong domestic debt bases typically experience fewer funding shocks during global crises– which are becoming increasingly common as political instability, climate change and other crises increase in frequency (Reuters Staff, 2025).
Alternatively, though, foreign debt is a crucial portion of a country like Ireland’s debt portfolio: by tapping into foreign investors, Ireland gains access to a deeper pool of capital than what is available domestically in the country’s relatively small economy. It’s crucial that the government maintains enough capital to finance its operations, and in Ireland’s case, foreign investment provides a better opportunity to do so. Also, foreign investments open up the possibility for greater diversification of investment, which is known to stabilise portfolios.
At the end of the day, foreign bias is not without its risks: there are several factors which a government, especially one with a relatively small population like Ireland, must consider when choosing how to balance a public debt profile. In many cases, investing too heavily in foreign assets leaves accounts vulnerable to external shocks which would not be present in a more domestic profile, as mentioned above: Foreign investors can rapidly withdraw capital in response to geopolitical or economic crises, leading to liquidity challenges and funding pressures (OECD, 2023).
The Necessity for Home Bias in the Irish Economy
However, in the case of Ireland, home bias is not just an asset but a necessity. A simple scroll through major national newspapers will reveal the country’s further spirals into a cost-of-living crisis. In our country’s case, the government’s proclivity towards home bias would not only be welcome, but revitalising, to the Irish people. Government spending has only increased, Prior to the 2008 financial crisis, nearly 85% of Irish government bonds were held by foreign investors– a worrying statistic for a country wishing to maintain its strong domestic economy. However, the government began to pursue a higher level of domestic participation post-crisis, which resulted in almost 50% of those bonds being held domestically in 2014 (Newenham, 2014). Recent data from the Central Statistics Office, though, indicates a backswing towards foreign ownership. The country is facing an extreme reliance on foreign capital and remains vulnerable to external economic conditions (Www.cso.ie, 2024).
Without a succinct business acumen, whether the government participates in home bias or not may seem inconsequential to the average Irish citizen. But the reality is that no individual is unaffected by how their country manages its portfolio; some citizens recognise this and will even go as far as to protest their government if they are unsatisfied with the ethics, long-term feasibility, or general appearance of investment by controversial foreign bodies. Ireland has long praised itself as a country which values its citizens and maintains a no-nonsense attitude towards the country’s betterment. While foreign investment remains important, it’s becoming increasingly clear that the security of domestic debt is more important than ever. For example, a country like Japan, which has a strong domestic investor base, relies on its banks and pension funds to support debt issuance during crises– in Ireland, the absence of a strong domestic buffer increases vulnerability to external shocks (McGee and Westbrook, 2024). This critically endangers the continued maintenance of Ireland’s
market confidence.
Despite the wickedness of the portfolio management problem amid an increasingly globalised world, there are solutions which can serve as mitigating factors for a government which is concerned about its holdings. The government has a shining opportunity, with the recent implementation of new public officials and Seanad Éireann elections just around the corner, to adopt policies which aim to encourage domestic investment in government debt. These could take the form of tax incentives for individual and institutional investors – similar to those in Italy. Or the government could take the strategy of Japan, by promoting government bond investment through domestic pension funds and savings vehicles.
Conclusion
Ireland’s lack of home bias in government debt is a double-edged sword. Foreign investment provides critical access to global capital markets, enabling the country to finance its operations at competitive rates and diversify its debt portfolio. This approach has helped Ireland maintain robust economic growth and stability– a critical tactic, especially following the financial crisis of 2008. However, reliance on foreign investors introduces extremely critical vulnerabilities: exposure to external shocks, capital flight, and reduced autonomy in fiscal policy.
As Ireland navigates an increasingly volatile global economy that grows more uncertain by the day, a stronger domestic investor base in government debt will provide much-needed insulation against crises. Strategies such as tax incentives, the promotion of domestic savings vehicles, or leveraging pension funds to invest in government debt could help address this imbalance. The precedent set by dozens of other countries like Japan and Italy should embolden the government to make important moves and restore home bias in the country. These strategies have demonstrated the efficacy of such measures in stabilizing debt structures while maintaining market confidence. Ultimately, balancing the complex relationship between domestic and foreign holdings is crucial for Ireland’s financial resilience. While foreign investment must remain a key pillar of its debt strategy to ensure continued growth, a renewed focus on fostering home bias will safeguard Ireland’s economic future, ensuring stability for its citizens which have gotten all too used to uncertainty– which should always remain a thriving government’s priority.
