Baker & MacKenzie Conference; Speech

Smart ID and Privacy in Japan
Legal Issues of Tracking Using Radio Frequency Identification (Electronic Tags)
Takato Natsui
Professor, School of Law, Meiji University, Tokyo, Japan
Practicing Lawyer, Asuka Kyowa Law Firm, Tokyo, Japansumwel_h@kisc.meiji.ac.jp

Abstract
Smart ID refers to identification or authentication by means of a radio
frequency identification (RFID) system. This is typical example of electronic
identification measures. RFID is and will remain the most important device in thisarea, today and in the future. Such identification devices can be attacked easily by
persons with criminal intent, however, and there are many cases, for instance, of ID
theft and theft of credit card numbers on the Web.
Such ID theft may cause violations of privacy, give rise to various types of
security issues, and lead to further economic crimes. Moreover, ID theft threatens
the integrity of computer systems and other important activities on the Internet
including electronic commerce and electronic authentication.
Traceability functions are themselves a key issues concerning privacy
protection, especially in relation to RFID. Such discussions are very important. But
at the same time, it may be more important to establish a more effective legalmeans—both in the enactment and enforcement of laws to prevent and punish suchcriminal conduct as ID theft and similar unlawful behavior.
These are common issues affecting all people who live in an advanced
Information Society. We must examine these matters as soon as possible.
Thus, new legislation may be necessary on these issues, but such legislation
shall be harmonized with relevant treaties and international agreements.
I would like to present outlines of Japanese laws and cases, point out important
problems, and discuss my perspectives on these issues.
Key words
Smart card, RFID, electronic tag, privacy, security, encryption, ID theft, interception,communication
1. Introduction: Current Status
Smart ID refers to identification or authentication systems using radio frequency
identification (RFID) systems, also know as the electronic tags or electronic bar codes.
RFID systems are among the most attention-gathering electronic devices today as ameans of joining the network world with the real world1.
In Japan, many RFID systems are already used in the various area, for instance for1

RFID In Retail: The Future Is Now
http://www.mwvis.com/downloads/rfid_future.pdf
1Baker & MacKenzie Conference; Speech

the purpose of preventing thefts in the bookstores or music CD shops (mainly installedinside of paper Tags or small plastic cases) or various types of payment IC cards (mainly
installed inside plastic cards or credit cards; so-called smart card2)3.
Of course, RFID systems are not implemented with every type of smart card, but inJapan, there are many types of smart card in which RFID systems or radio frequency
functions have been installed4 . For instance, “Suica” (this plastic card is a kind ofelectronic wallet card system with an RFID function)5 and “Edy” (this plastic card is akind of an electronic money system with an RFID function; in many cases, Edy cards
have other functions such as credit card or flight mile points card)6 are very popular with
the Japanese people (especially in the Tokyo area).
In addition, the Japanese government introduced a smart card system with a radio
frequency identification function as the national ID card7.
RFID is put into practice through the use of extremely small IC chips, and althoughinternal memory capacities are limited, considering the rapid pace of technologicalinnovation relating to circuit integration, there is little doubt that in the near future thememory capacity as well as the calculating and communication capabilities of RFID
devices will increase dramatically and all the current functions of conventional computerswill be incorporated into small ICs. Although some hold the opinion that because current
RFID memory capacities are small, the risk of problems such as privacy violations are
relatively low, this view fails to comprehend the current status and pace of technology
development, leading to the unavoidable conclusion that such opinions indicate a
profound lack of imagination concerning the future. Japanese companies are currently
conducting product development with an emphasis on RFID miniaturization8, but wemust not overlook the fact that overseas the focus of development is not just on
miniaturization but is also on enhancing RFID functions.
2

ISO/IEC 7816
The IDTechEx Web Journal, Smart Labels Analyst, Issue 21, October 2002
http://www.idtechex.com/slaoct02.pdf
4Specification of IC cards with contacts complying with Japanese Industrial Standard,
July 1998, Version 1.1, Japan Ic Card System APplication council (JICSAP)
http://www.jicsap.com/stdwork/V1.1E.pdf
5Introduction and Future Development of Suica Non-contact IC Card Ticketing System
by Akio Shiibashi
http://www.jrtr.net/jrtr32/pdf/f20_shi.pdf
6The "Edy" prepaid e-money service launches, Nov 8, 2001
http://ne.nikkeibp.co.jp/english/2001/11/1107edy_mobile.html
7
See Smart Card for Secure and Convenient Life
http://magazine.fujitsu.com/vol52-6/v52n6a-e.html
See also SmartCord, IST-2000-30168, Co-ordination mechanisms for eEurope Smart
Card Charter implementation
http://www.electronic-identity.org/download/Athens-eESCMeeting.pdf
and IT Strategic Headquarters in the Prime Minister Cabinet of Japan
http://www.kantei.go.jp/foreign/policy/it/index_e.html
8Hitach/Maxell; In some applications - size will matter.For these, we use one of theworld's smallest passive read/write chips.
http://www.climarque.co.uk/passive/coil_on_chip.htm

32

Baker & MacKenzie Conference; SpeechThus, the social potential of RFID is abnormally high, leading to apprehension
concerning the various legal issues arising from being in a society where RFID is put into
practice9. The fact the RFID tags are extremely small, electronic devices may also giverise to legal issues. Some potential legal issues include:
•

•

•

•

•

•

Violations of privacy rights
The combination of the product identification functions of RFID and the individual
identification functions of electronic marketing including Point of Sales (POS) andcredit card payment through data matching may lead to privacy violations10.
Disclosure and violation of confidential corporate information (Trade Secrets)
Through the exact same mechanisms that give rise to the potential for violations ofindividuals’ privacy by means of RFID, there is also the risk of disclosure andviolations of the confidences of corporations, especially of trade secrets.
Electromagnetic interference and allocation of the electromagnetic spectrum
RFID are electronic devices that use minute radio waves, and as they proliferate,
there is a danger that interference will occur. Also, there is currently no agreement
whatsoever concerning what frequencies to use, posing the risk of complex problems
including international trade friction11.
Code standards
There is no international agreement on standards for the codes used by RFID systems,
which may result in major obstacles to distribution and management including
electronic commerce as well as payment12.
Environmental issues
RFID tags contain heavy metals and other pollutants, and because they are extremely
small, recovery or recycling is not feasible. As a result, pollutants contained in RFID
tags may be discarded and accumulate in the natural environment and social sphere.
Harm to human health
RFID tags are devices that transmit and receive electromagnetic waves, and theimpact of radio waves on human health is still unknown. Also, since they are
extremely small metallic devices, if they can not be recycled or recalled completely
after use, there is a risk that RFID tags or pieces of them could be inhaled, leading topotential conditions such as pneumoconiosis. RFID tips that are buried in a wall or

9

See Sanjay E. Sarma, Stephen A. Weis, Daniel W. Engels, White Paper, RFID Systems,
Security & Privacy Implications, published November 1, 2002
http://www.autoidcenter.org/research/MIT-AUTOID-WH-014.pdf
10
See CASPIAN’s Web Site. CASPIAN is one of the most well-known privacy advocate
organizations in the U.S. It promotes privacy protection relating to RFID.
http://www.nocards.org/
11
Transmission Interference White Papers
http://www.itpapers.com/cgi/SubcatIT.pl?scid=905
See also Auto-ID Center UHF Class 1 RFID, RF and Logical Communication Interface,
Specification version 1.0.0
http://www.alientechnology.com/library/pdf/WP_AlienEPC_Class1UHFSpecFeedback.
pdf
12
About RFID standard in Japan, See Ubiquitous ID Center’s Web Site
http://uidcenter.org/
3

Baker & MacKenzie Conference; Speech••

furniture or under the road13 can become potential pollutants. But this problem has
not yet been analyzed and examined sufficiently.
Products liability
RFID tags are electronic devices, and consequently, they correspond to movables or
personal property under the Japanese Civil Code. As a result, the Products Liability
Law applies directly to all technical problems including bugs in the software
incorporated within tags. This is also true under similar laws in foreign countries.
Security
RFID systems themselves are a type of independent computer system and include
internal operating systems and software. As a result, infection of RFID systems byviruses and hacking are theoretically possible. At this time, however, there is notechnological means of bug fixing internal RFID programs or upgrading the internal
software. It is possible that this will be legally deemed a “defect” of the systems14.

These are some of the potential legal issues. I this paper, I will address primarily
issues concerning privacy relating to the RFID, focusing on the application of current
legal systems and laws.
2. The Mechanism by Which Privacy Issues Arise
2.1 Comparison with printed bar codes
As in the case of tracking using software such as spyware, we can understand theissues of privacy as they concern RFID systems to be a part of the larger problem ofviolations of privacy through monitoring.
It is generally believed that the idea that RFID systems make possible tracking
derives from the fact that they are primarily wireless devices. This idea, however, is notcorrect.
In fact, tracking in some sense is possible in any environment in which some“object” with tracking ID functions using a wireless or cable network can match data withindividual identifications. For example, even in the case of bar codes printed on paper,
tracking functions can be implemented by data matching product information with credit
card payment information. The issue of privacy violations from bar codes printed on
paper is not sees as more significant because of the lack of attention by legal scholars andthe lack of interest by consumers.
Accordingly, the issue of privacy with respect to RFID is not one that arises from
RFID, and is no more than an existing issue that has been expanded and made more
apparent by RFID.
Similar problems arise from spyware that has been intentionally installed and can
13

For instance, the Yaoyorozu Project of Japan is planning and examing such burying of
RFID tips and other similar devices in walls and buildings, carpet, furniture, automobiles
and other consummer goods, banknotes, checks and other authentication instruments, andunder roads.
See Background and Aims of Establishment of Yaoyorozu project
http://www.8mg.jp/en/outline_goals01.htm
14
See Privacy and Authentication in Low-Cost RFID Tags, Ari Juels, RSA Laboratories
http://www.rsasecurity.com/rsalabs/staff/bios/ajuels/publications/pt-rfid/pt-rfid.pdf
4Baker & MacKenzie Conference; Speechalso arise from the misuse of intelligent household appliances.
2.2 Comparison with ordinary computer systems
RFID is a small IC tip but it is also a kind of computer system15. Thus everything thatcan be performed relating to computer systems can be realized on RFID systems as well.
If any data involved in RFID is not encrypted, many types of privacy violations
could be caused by hacking the data recorded inside RFID devices.
Of course, most RFID systems have a security mechanism (in many cases,
encryption technology is incorporated into RFID tips physically). However, there is noentirely complete encryption technology or encrypted data. An old Chinese proverb saysthat there is no perfect shield that can protect against every halberd and there is no perfecthalberd that can pierce every shield (i.e., logically, a perfect shield and a perfect halberd
can not exist at the same time). If an RFID system does not have a practical and effective
security system, the possibility of illegal access to RFID tips and decryption of encrypted
data in RFID can not be completely prevented.
On the other hand, privacy violations can take place within equipment and dataservers outside of the RFID system itself. Data collected through RFID is usually
decrypted in an RFID reader device or a data server system. Thus, interception ofdecrypted data can take place outside the RFID system itself. For instance, an illegal spy
device attached to an RFID reader device such as an illegal skimmer16 for credit card
readers may be developed and used in the future.
2.3 Location Data Tracking
In addition to the above, if tracking an RFID location is possible, then the privacy oflocation can be violated. For instance, a good wireless wave sensor device can intercept
an electronic emission from RFID tip or other similar device, and if the ID of a user or the
ID of specific good can be distinguished or identified by such interception, then data
matching such as the location of specific person or good can be automatically generated,possibly in combination data with GPS information. Such data matching may be done
without the consent of the individual who is in possession of something to becommunicated by wireless to which RFID tips or similar devices are attached.
3. Parsing the Issues
When RFID is used simply to identify products and services in ways that bear no
relationship to the general public, the issue of privacy violations does not arise, so it isnecessary to understand these issues by separating them by context.
For example, when RFID is used as a tool to trace the country of origin of imported
beef as a countermeasure against mad cow disease (BSE)17, a tool to trace the country of
15IEEE Pervasive Computing Magazine, Pervasive Computing Goes the Last Hundred
Feet with RFID Systems
http://www.computer.org/pervasive/pc2003/b2009.pdf
16
The United States Depertment of Justice, Public Advisory: Special Report for
Consumers on IDENTITY THEFT
http://www.usdoj.gov/opa/pr/2003/May/publicadvisory1.pdf
17
e.g. National Food Animal Identification Task Force, a united effort involving industry
and government5

Baker & MacKenzie Conference; Speechorigin of imported agricultural products to protect consumers from problems arising fromagricultural chemicals, a tool to trace the country of origin of marine products to prevent
problems resulting from mercury poisoning, or as a means of controlling components andprocesses within a plant that is located far from consumers, there is no possibility ofprivacy violations arising from these uses themselves. To the extent that use is limited tothese types of applications, RFID can be extremely effective for control purposes.
Of course, once meat or manufactured products that have RFID tags attached passinto the hands of the consumer, issues of privacy violations may arise in all subsequent
phases (retail phases)18. As will be shown below, these issues, however, arise as a resultof data matching and are not generated by RFID itself.
On the other hand, when RFID is using with human personal ID, direct privacy
violation may be taken place, for instance in the area of a transportation security19.
4. Privacy Violations through Data Matching
It is also possible, however, that issues concerning privacy violations resulting fromdata matching will arise in instances where RFID is used not to identify people, but toidentify goods and services.
To the extent that RFID systems include identification functions, such problems may
arise in retail payment situations and in all subsequent stages. This is one of the mostsignificant criticisms of RFID with respect to privacy violations accomplished throughtracking.
The same issues, however, arise with bar codes printed on paper. For example, bar
codes printed on books can result in permanent tracking if they are matched withcustomer account numbers at the recycling stage by the recycling business. This type ofissue, however, can be avoided Law through the legal control of businesses that handle
personal information such as bookshops and recycling companies.
In contrast, the status of the issue with respect to RFID may be somewhat different.
That is, as long as RFID functions are not terminated, RFID systems are electronic
devices that have the ability to detect tags using radio waves. Consequently, persons
other than businesses that handle personal information will be able to trace products with
RFID tags that specific individuals are carrying through private or public means ofdetection. In this context, issues concerning privacy violations that are not covered theLaw for the Protection of Personal Information (law No. 57 of 2003) 20may arise.
http://www.animalagriculture.org/id/TaskForce/nat_foodanimalidtaskforce.asp
See also Animal Identification & Information System, The Need for Identification
http://www.wiid.org/index.php?action=why
and NIAA National Identification Task Force
http://www.animalagriculture.org/id/TaskForce/National_ID_Plan_November.pdf
18
Privacy advocates call for RFID regulation by Alorie Gilbert, CNET News, August 18,
2003, 8:40 PM PT
http://news.com.com/2100-1020_3-5065388.html
19
Cargo Security Overview, Technologies, Government and Customs Initiatives, Global
eye for transport research, November 2002
http://www.eyefortransport.com/report/cargosecurity.pdf
20Administrative regulations and ordinances need to be drafted and enacted to enforce theProtection of Personal Information Law. The Japanese government must prepare such6

Baker & MacKenzie Conference; Speech

For example, by simply carrying a detection device hidden in a briefcase or bag andapproaching the subject individual in a train, it would be possible to detect all of the items
that individual is carrying. In addition, if intelligent household appliances21 were affixedwith RFID tags, it would be possible to detect all of the appliances in a house from outsideby the interception of emissions from wireless LAN systems or intelligent house systems
or hacking into such systems.
If the RFID identifying codes detected with these types of detection devices andpersonal identifications were matched over networks in real time or later using batchprocessing, the privacy of the individual will cease to exist. When someone other thanentities handling personal information performs this conduct, the Law for the Protectionof Personal Information does not apply at all.
5. Technological Responses—Introduction of Functions to Terminate RFID
Functions and Encryption
5.1 Functions to Terminate RFID Functions
In order to prevent privacy violations such as these, it is important first to address the
hardware issues by loading physical functions into RFID systems in such a way as toprevent privacy violations, and to address the operational issues by establishingappropriate policies intended to protect privacy. Such measures can be understood as apart of the technology responses for preventing privacy violations.
Such functions are generally referred to as kill functions or deactivation functions22.
There are two potential approaches to loading kill or deactivation functions into RFID
tags.
•

•

Physical Approaches
In the retail context, after payment has been completed, subjecting the RFID tags tostrong magnetic waves or heat rays can terminate RFID tracking functions, thereby
physically damaging the tags. This is currently the most common method used whenretail stores employ theft-prevention chips attached to products.
Software and Firmware Approaches
At the design stage, RFID standards should provide for switches to turn them on andoff, and in accordance with uniform international standards, RFID functions should
be shut off automatically in conjunction with the operation of being read by an RFID
reader. Making the terminated functions non-restorable unless the RFID tag isregulations and ordinances by June 2005.
Japanese government is now promoting development and wide distribution of suchintelligent household appliances.
See Survey of Household Economy - Explanation of Survey Items
http://www.stat.go.jp/english/data/joukyou/6.htm
22
See RFID 'kill' feature aims to soothe privacy fears by Junko Yoshida, EE Times, April
28, 2003 (9:56 a.m. EST)
http://www.commsdesign.com/news/market_news/OEG20030428S0019'Kill' switch disables Radio ID chips by Richard Shim, CNET News.com, May 6, 2003,
4:58 AM PT
http://zdnet.com.com/2100-1103_2-999794.html
217

Baker & MacKenzie Conference; Speechprocessed by an exclusive RFID recycling plant in accordance with a suitableprivacy policy will substantially reduce the risks of violations of privacy using RFID
tracking functions.
5.2 Encryption
Encryption is an additional or supplemental but strong technological way to protect
privacy in the course of operating RFID systems.
Encryption technology will be used in some parts of RFID systems; recorded data
inside RFID itself, RFID reader, electronic communications between RFID tips andRFID readers as well as RFID readers and server systems (e.g. POS servers, membershipmanagement servers, the National ID servers and so on).
If fact encryption itself is not a perfect technology, but non-encrypted data or systems
means naked data or systems. Such naked systems can not protect privacy and may
permit illegal behavior (e.g., ID theft23, hacking of systems, and illegal interception ofcommunications data).
6. Legal Responses—the Needs for Legal Reforms
Under the current legal system, if legislation intended to prevent violations ofprivacy with respect to RFID were adopted, there would be no problem with taking
appropriate legal responses. The current legal system, however, provides virtually no
responses to potential issues raised by RFID systems.
6.1 Personal Information Protection Law
The Law for the Protection of Personal Information of Japan (law No. 57 of 2003) is
not a privacy protection law. The law applies only to an entity handling personal
information who has gathered a certain volume of such data.
The Law for the Protection of Personal Information (extract)
Article 2 (Definitions)
1. In this law, the term "personal information" means information about a living
individual that contains such name, date of birth, or other description as will enable
the identification of the individual (including such information as will allow easy
reference to other information and will thereby enable the identification of theindividual).
2. In this law, the term "personal database or the like" means a collection of
information containing personal information that falls into either of the following
categories:(1)
A collection of information systematically arranged in such a way thatspecific personal information can be retrieved by a computer(2)
Any other collection of information designated by a Cabinet order as
being systematically arranged in such a way that specific personal information
can easily retrieved otherwise
3. In this law, the term "entity handling personal information" means an entity
23

The Federal Trade Commission: Your National Resource for Identity Theft
http://www.consumer.gov/idtheft/
8

Baker & MacKenzie Conference; Speechusing a personal database or the like for its business. However, the term shall notinclude the entities enumerated below.
(1)
State institutions(2)
Local public entities(3)
Independent administrative agencies (which term hereinafter means
independent administrative agencies defined in Paragraph 1 of Article 2 of theGeneral Law of Independent Administrative Agencies [Law No. 103 of 1999])
specified separately by law(4)Special corporations (which term hereinafter means such corporations
established directly by law or such corporations established by special acts ofincorporation under special laws as are governed by the provisions of Item 15 of
Article 4 of the Law for the Establishment of the Ministry of Public Management,
Home Affairs, Posts and Telecommunications [Law No. 91 of 1999]) specified
separately by law(5)
Entities specified by a Cabinet order as being unlikely to harm the rights
and interests of individuals in consideration of the volume of personal information
they handle and their manner of use
4. In this law, the term "personal data" means personal information constituting apersonal database or the like.
5. In this law, the term "personal data held" means such personal data over which
an entity handling personal information has the authority to disclose, correct, add,
delete, suspend its use, erase, and suspend its supply to third parties as is specified bya Cabinet order as harming public or other interests if its presence or absence is
known or as will not be erased within a period of not longer than one year that will be
specified by a Cabinet order.
6. In this law, the term "person" as used with reference to personal informationmeans a specific individual identified by personal information.
Article 15 (Specification of the Purpose of Use)
1. When handling personal information, each entity handling personal
information shall specify the purpose of use of personal information (hereinafter
called the "Purpose of Use") as strictly as possible.
2. Entities handling personal information may not change the Purpose of Use
beyond the scope reasonability considered duly related to the Purpose of Use before
the change.
Article 24 (Maintenance of the Accuracy of Data)
Each entity handling personal information shall endeavor to maintain personal data
accurate and up to date within the scope necessary for the achievement of the
Purpose of Use.
Article 25 (Security Control Measures)
Each entity handling personal information shall take necessary and proper measures
for the control of security of the personal data it handles, including the prevention ofleakage, loss, and damage.

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Baker & MacKenzie Conference; Speech

Article 26 (Supervision of Employees)
When an entity handling personal information has an employee handle personaldata, it shall exercise necessary and appropriate supervision over the employee toensure the control of security of the personal data.
Article 27 (Supervision of Trustees)
When an entity handling personal information entrusts a person or entity with thehandling of personal data in whole or in part, it shall exercise necessary andappropriate supervision over the trustee to ensure the control of security of theentrusted personal data.
Article 32 (Collection of Reports)
The competent minister may have entities handling personal information report on
the handle of personal information to the extent necessary for the implementation of
the provisions of this section.
Article 33 (Advice)
The competent minister may advise entities handling personal information report on
the handle of personal information to the extent necessary for the implementation of
the provisions of this section.
Article 34 (Recommendations and Orders)
1. Where an entity handling personal information has violated any of theprovisions of Articles 16 to 18, Articles 20 to 27, or Paragraph 2 of Article 30, if thecompetent minister considers it necessary for protecting the rights and interests ofindividuals, the competent minister may recommend the entity handling personal
information to cease the violation and take necessary measures to redress theviolation.
2. Where an entity handling personal information having received arecommendation under the provisions of the preceding paragraph does not take therecommended measures without due reason, if the competent minister considers that
any infringement on the important rights and interests of individuals is imminent, thecompetent minister may order the entity handling personal information to take therecommended measures.
3. Notwithstanding the provisions of the preceding two paragraphs, where a entity
handling personal information has violated any of the provisions of Paragraph 1 or 2of this Article, Articles 20 to 22, or Paragraph 1 of Article 23, if the competent
minister considers it necessary to take measures urgently in view of the fact of
infringing on the important rights and interests of individuals, the competent
minister may order the entity handling personal information to cease the violationand take necessary measures to redress the violation.

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Baker & MacKenzie Conference; Speech

Article 56 (Penalty)
A person who disobeys orders issued under Paragraph 2 or 3 of Article 34 shall be
liable to imprisonment of not more than six months or to a fine of not more than
300,000 yen.
Article 62 (Penalty)
A person who does not make a report required by Article 32 or 46 or who has madea false report shall be liable to a fine of not more than 300,000 yen.

Persons other than entity handling personal information, however, could commit
many potential violations of privacy from the use of RFID. Thus, the Law for theProtection of Personal Information should be amended and legislation adopted to create alaw that protects ordinary privacy.
6.2 Unauthorized Computer Access Law
In order to make legal responses to violations of privacy committed by detecting
data stored in the internal memories of RFID tags, it is necessary to prohibit this type of
conduct. The current Unauthorized Computer Access Law (Law No. 128 of 1999)
applies only to unauthorized access by means of telecommunications lines to network
computers connected to telecommunications lines24. Consequently, this Law does not
apply to acts of unauthorized access to RFID tags, which are a type of standalone
computer. The Unauthorized Computer Access Law should immediately be amended tomake it applicable to unauthorized access of standalone computers as well.
Unauthorized Computer Access Law (extract)
Article 3 Prohibition of acts of unauthorized computer access
1. No person shall conduct an act of unauthorized computer access.
2. The act of unauthorized computer access mentioned in the preceding paragraphmeans an act that falls under one of the following items:(1) An act of making available a specific use which is restricted by an access
control function by making in operation a specific computer having that access
control function through inputting into that specific computer, via
telecommunication line, another person’s identification code for that access
control function (to exclude such acts conducted by the access administrator who
has added the access control function concerned, or conducted with the approvalof the access administrator concerned or of the authorized user for that
identification code);(2) An act of making available a restricted specific use by making in operation a
specific computer having that access control function through inputting into it, via
24

On unauthorized access crimes in Japan, See, Japanese Information Security Status,
February 3, 2003, Kei Harada, IT Security Center (ISEC), Information-technology
Promotion Agency, Japan (IPA)
http://www.opengroup.org/sfo2003/proceedings/plenary_monday/harada.pdf
11Baker & MacKenzie Conference; Speechtelecommunication line, any information (excluding an identification code) or
command that can evade the restrictions placed by that access control function onthat specific use (to exclude such acts conducted by the access administrator who
has added the access control function concerned, or conducted with the approvalof the access administrator concerned; the same shall apply in the following item);(3) An act of making available a restricted specific use by making in operation a
specific computer, whose specific use is restricted by an access control function
installed into another specific computer which is connected, via atelecommunication line, to that specific computer, through inputting into it, via atelecommunication line, any information or command that can evade therestrictions concerned.
Article 4 Prohibition of acts of facilitating unauthorized computer accessNo person shall provide another person’s identification code relating to an access
control function to a person other than the access administrator for that access
control function or the authorized user for that identification code, in indicating that
it is the identification code for which specific computer’s specific use, or at therequest of a person who has such knowledge, excepting the case where such acts are
conducted by that access administrator, or with the approval of that accessadministrator or of that authorized user.
Article 6 Assistance etc. by Metropolitan and Prefectural Public Safety
Commissions
1. The Metropolitan or Prefectural Public Safety Commission (each of the Area
Public Safety Commissions in case of the Areas (that means the Areas mentioned in
Article 51, paragraph 1, main part, of the Police Law (Law No. 162 of 1954); thesame shall apply hereafter in this paragraph) except the Area which comprises theplace of the Hokkaido Prefectural Police Headquarters: the same shall apply
hereafter in this Article), in case an act of unauthorized computer access isrecognized to have been conducted and if, for the purpose of preventing a recurrenceof similar acts, assistance is requested by the access administrator of the specificcomputer involved in that act of unauthorized computer access, attaching to such
request any documents or articles regarding referential matters, such as thesituations of operation and management of that specific computer at the time of thatact of unauthorized access, shall provide, when it deems such request reasonable,that access administrator with assistance, including provision of relevant materials,
advice and guidance, so that necessary emergency measures can be properly taken inaccordance with the modus operandi of that act of unauthorized access or its cause toprotect that specific computer from acts of unauthorized access.
2. The Metropolitan or Prefectural Public Safety Commission may entrust to aperson to be stipulated by National Public Safety Commission Regulation with all orpart of the work of implementing a case analysis (which means making a technicalstudy and analysis on the modus operandi of the act of unauthorized computer access
relating to that request and the cause of such act; the same shall apply in thefollowing paragraph) which is necessary for the providing of the assistancementioned in the preceding paragraph.
3. A person who has engaged in the work of implementing a case analysis

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Baker & MacKenzie Conference; Speech

entrusted by the Metropolitan or Prefectural Public Safety Commission inaccordance with the preceding paragraph shall not reveal secret he or she has learned
with regard to such implementation.
4. The necessary matters other than those stipulated in the preceding threeparagraphs relating to the assistance mentioned in paragraph 1 shall be stipulated by
National Public Safety Commission Regulation.
Article 8 Penal provisions
A person who falls under one of the following items shall be punished with penal
servitude for not more than one year or a fine of not more than 500,000 yen:
(1) A person who has infringed the provision of Article 3, paragraph 1;(2) A person who has infringed the provision of Article 6, paragraph 3.
Article 9 A person who has infringed the provision of Article 4 shall be punishedwith a fine of not more than 300,000 yen.
6.3 Payment Card Protection by Penal CodeIn addition, Article 163bis of the Penal Code (Law No. 45 of 1907) prohibits any
production of electromagnetic records relating to credit cards or similar IC cards used for
payment with intention of fraud, and Article 163tre prohibits possession of illegally
produced credit cards or similar IC cards used for payment.
Thus, the Penal Code of Japan can protect RFID tips relating to IC cards used for
payment. However, these provisions apply only to physical credit cards used for payment.
If the RFID cards don’t have such payment functions, then these provisions of the Penal
Code do not apply. There is no law that prohibits illegal production of IC tips itself.
Penal Code of Japan (extract)
Article 163bis Illegal production and use of an electromagnetic record on payment
card
1. Any person who with the intention of misleading any business management ofothers, illegally produces such an electromagnetic record as to be provided for theuse of the business management which consists credit card or other similar payment
card for any fee or charge shall be punished with penal servitude for not more thanten years or a fine for of not more than one million yen. Any person who illegally
produces such an electromagnetic record as to be provided for the use of debit cardfor withdrawal shall be same.
2. Any person who with the intention of paragraph 1 provides such an
electromagnetic record as to be provided for the use of the business management
shall be punished with the same penalty of paragraph 1.
3. Any person who with the intention of paragraph 1, transfer, lend or import a
card which has an electromagnetic record illegally produced set forth in paragraph 1
shall be punishable with the same penalty of paragraph 1.
Article 163tre Illegal holding of an electromagnetic record on payment card
Any person who with the intention of paragraph 1 of previous Article, hold such a
card set forth in paragraph 3 of previous article shall be punished with penal

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Baker & MacKenzie Conference; Speechservitude for not more than five years or a fine for of not more than 500 thousandsyen.
6.4 Illegal Interception of Wireless Communications
The current Wireless Communication Law (Law no. 131 of 1950) includes penal
provisions intended to protect the secrecy of communications. The law prohibits any
theft-use and disclosure of information without consent or legitimate grounds (Article
109). However, this provision can be applied only to information that is handled bywireless communication stations (thus, it is not applicable to independent wirelesselectronic devices), and any illegal interception to wireless communications is not bepunishable under the current law.
As a result, the Somu-sho (Ministry of Public Management, Home Affairs, Posts andTelecommunications) is currently preparing an amendment bill to punish interception of
encrypted wireless communications.
6.5 Location Data
A major issue for many legal scholars has been whether location data should beconsidered a part of privacy data or not. Concerning this issue, a new EU directive 25
clearly indicates that location data can be processed only with the consent of users orsubscribers.
EU Directive on privacy and electronic communications (extract)
Article 9
1. Where location data other than traffic data, relating to users or subscribers of
public communications networks or publicly available electronic communications
services, can be processed, such data may only be processed when they are madeanonymous, or with the consent of the users or subscribers to the extent and for theduration necessary for the provision of a value added service. The service provider
must inform the users or subscribers, prior to obtaining their consent, of the type oflocation data other than traffic data which will be processed, of the purposes andduration of the processing and whether the data will be transmitted to a third party
for the purpose of providing the value added service. Users or subscribers shall begiven the possibility to withdraw their consent for the processing of location data
other than traffic data at any time.
2. Where consent of the users or subscribers has been obtained for the processing oflocation data other than traffic data, the user or subscriber must continue to have thepossibility, using a simple means and free of charge, of temporarily refusing theprocessing of such data for each connection to the network or for each transmissionof a communication.
3. Processing of location data other than traffic data in accordance with paragraphs 1
and 2 must be restricted to persons acting under the authority of the provider of the
public communications network or publicly available communications service or of25

Directive 2002/58/EC of the European Parliament and of the Council of 12 July 2002
concerning the processing of personal data and the protection of privacy in the electronic
communications sector (Directive on privacy and electronic communications)
http://europa.eu.int/eur-lex/pri/en/oj/dat/2002/l_201/l_20120020731en00370047.pdf
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Baker & MacKenzie Conference; Speech

the third party providing the value added service, and must be restricted to what isnecessary for the purposes of providing the value added service.
In Japan, however there is no law that directly governs the protection of locationdata.
7. Adoption of Appropriate Privacy Policies
Application of the Law for the Protection of Personal Information will require theadoption of privacy policies that conform to the Law. Such policies could require, forinstance, the consent of the subject prior to the collection of personal information or
notice of the purpose of collecting the information. Thus, a policy should be adopted thatwhen personal information is collected using RFID or RFID and data matching, clear
notice or notification that personal information is being gathered using RFID must be
provided.
Also, even in cases that the Law for the Protection of Personal Information does not
apply directly, policies intended to protect privacy on a level that can be accepted globallyshould be adopted including the fundamental principles for the protection of privacy
indicated in the Law.
Accordingly, in any of the above situations, stealth application of RFID should beprohibited. When RFID is actually used, clear notice that RFID is being used to collectsome type of information must be provided, just as in the case of security camera use.
When RFID tags are incorporated into products or product labels, for example, theproduct or label should indicate the presence of the RFID tag. Similarly, when RFID tags
are placed in home appliances or furniture, they should be labeled in large text on thesurface so that everyone will be aware of the presence of the tags.
The above are what I believe to be the most important policies that should be
adopted in the retail context26.
8 Conclusions
We are facing a new crisis in the information society. RFID systems and similarelectronic devices are the most important elements of this issue.
I would like to emphasis that there is no perfect technological means, perfect law or
perfect privacy policy that can completely prevent privacy violations in relation to RFID
systems and similar electronic devices. Technological means, laws, and privacy policies
each have their own unique limitations. These are all complementing means, not solitary
or independent measures to protect privacy.
If, however, one recognizes the seriousness of privacy violations in relation to RFID
and similar electronic devices, then everyone can agree that more progress in means ofprotection and security technology, more effective laws and regulations, and morepractical and meaningful privacy policies must be developed.
Thus, it is essential that we understand the details of the technological aspects of
RFID and the limitations of current laws and privacy policies. The reality in Japan
concerning this issue may serve as a good example to investigate and resolve these issues.

26

An RFID Bill of Rights by Simson Garfinkel, October 2002
http://www.simson.net/clips/2002.TR.10.RFID_Bill_Of_Rights.htm
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