Top-down or consensual

In most hierarchical cultures, decisionmaking is top-down. But Japan is an exception to the rule. Although Japan is a highly hierarchical culture, the decision making process is quite consensual. Eventually the highest office will decide, but not without a thorough preparation and consensus from all involved. Every layer in the organisation has a part in preparing for a decision and departments come to a joint conclusion before the proposal is being brought to the next level.

Mr. Takahashi can not respond to spontaneous suggestions such as a bilateral committee that are in essence quite formal with a lasting impact. He needs to follow the process as stipulated and consult others. In this case, he will first consult the Director-General and Vice-minister METI about the general willingness to pursue more bilateral cooperation and if so, he will instruct lower ranks to make a detailed analysis and inventory of possible projects and to come forward with proposals. 

Taking initiative

Jeanette will also solicit input from others since the Dutch culture is consensual and focused on buy-in and support from the group. But as an individual she is much more free in making suggestions and counter ideas. She just wants to consult her Japanese counterpart about a bilateral committee and if they both agree on the idea, go back to their respective ministries to finalise the details of the arrangements.  She will still seek buy-in from other departments, not as a procedural step but based on their willingness to be involved in the follow-up.