Ⅲ. LAW ENFORCEMENT AT THE BORDER AGAINST ILLICIT DRUGS AND
OTHER ILLEGAL ITEMS
1. Government Initiatives( 1 )Ministerial Meeting Concerning Measures against Crime
Considering the current situation where juvenile and heinous crimes occur frequently among
the people's daily lives, the Ministerial Meeting Concerning Measures against Crime wasconvened. The first meeting of the Ministerial Meeting was convened in September 2003. The
Prime Minister presided over this meeting, which was composed of all the Cabinet ministers.
The meeting has the mission to take effective, comprehensive, and active measures in close
cooperation with the ministries and other governmental agencies concerned with activities
against smuggling in order to restore Japan as the safest country in the world.
After that, the Ministerial Meeting Concerning Measures against Crime met often to devise various
measures adapted to address the crime situation. These were meetings that focused on support for action
by the public to secure their own safety, development of a social environment where crime is less likely,
and various anticrime measures beginning at the waterfront. These measures were advanced ascomprehensive anticrime action to make society as a whole stronger against crime. As a result, some
improvement was seen in public order in Japan, as numbers of reported crimes have fallen to less thanhalf the level reached in the worst post-war period.
Meanwhile, given the fact that new threats, such as cybercrimes, cyberattacks, international terrorism,
and organized crimes are emerging, and that social structure is changing, the strategy to create the safest
country in the world was drawn up in December 2013 (approved by cabinet on the same day) with aview to creating “the safest country in the world, Japan”, by decreasing crimes and building publicconfidence in security within seven years before the Tokyo Olympics and Paralympic Games which will
be held in 2020. The strategy has been followed-up every six months to steadily realize its aims.
Note: Members of Ministerial Meeting Concerning Measures against Crime
Chief:
Prime Minister
Members:

All the Cabinet Ministers( 2 )Meeting for the Promotion of Measures to Prevent Drug Abuse
Based on a cabinet decision in January 1997, the Headquarters for the Promotion of Measures
to Prevent Drug Abuse was established in the cabinet. While the Headquarters actively promoted
various measures against drug abuse, such as the securing of close cooperation between concerned
administrative authorities, strict control of drugs, and publicity and public awareness for securing public
understanding and cooperation, the Headquarters was reorganized and convened as the Meeting for the-9-Promotion of Measures to Prevent Drug Abuse under the Ministerial Meeting Concerning Measuresagainst Crime in December, 2008.
Recognizing the need for medium and long-term strategies to fight drug abuse, the Headquarters
decided on the Five-year Drug Abuse Prevention Strategy in May 1998, the New Five-year Drug Abuse
Prevention Strategy in July 2003, the Third Five-year Drug Abuse Prevention Strategy in August 2008,
and the Drug Abuse Prevention Strategy Acceleration Plan; thus promoting comprehensive andaggressive measures. By these strategies, certain results were achieved; for instance, the number ofyoung people arrested for abusing methamphetamine or cannabis decreased. Drugs sold as “legal herbs”,
however, spread and in some cases, users of such drugs committed secondary crimes, and the drugs
damaged users’ health. Even substances similar to the designated ones have appeared and are easily
available on the internet. Given these facts, the Fourth Five-year Drug Abuse Prevention Strategy was
newly established in August 2013. This strategy aims at the (1) promotion of prevention of drug abuseby raising public awareness or other measures; (2) prevention of repeated drug abuse through medical
treatment or support for rehabilitation for abusers; (3) eradication of smuggling organizations, strict
control of abusers, and strengthening of inspections and instructions; (4) prevention of drugs fromentering Japan through inspection at the border; and (5) international cooperation to prevent thesmuggling of drugs.
In addition, in July 2014, there was no end to crimes and serious traffic accidents resulting indeath caused by abusers of dangerous drugs and, as this became a grave social problem, basedon the instructions of the Prime Minister, Emergency Measures in order to eradicate the abuseof dangerous drugs was compiled at the meeting.

Note: Members of the Meeting for the Promotion of Measures to Prevent Drug Abuse
Chief:

Minister of State for Measures against DrugAbuse,

Deputy Chiefs:

Chair of the National Public Safety Commission,
Minister of Justice,
Minister of Finance, Minister of Education, Culture, Sports, Science and Technology,
Minister of Health, Labor and Welfare,
Minister of Land, Infrastructure and Transport

Members:

Minister of Public Management, HomeAffairs,
Posts and Telecommunications,
Minister of ForeignAffairs,
Minister of Economy, Trade and Industry-10-

( 3 )Meeting for the Promotion of Measures against Firearms
In September 1995, in view of the serious firearms situation at the time, the Headquarters for the
Promotion of Measures against Firearms was established in the Cabinet, and in 2008, this headquarters
was re-formed as the Meeting for the Promotion of Measures against Firearms during the Ministerial
Meeting Concerning Measures against Crime. In December 2012, the jurisdiction was transferred fromthe Cabinet Secretariat to the National Police Agency.
In December 1995, an outline for the promotion of measures against firearms, which revealed thebasic government policy on measures against firearms, was drawn up. Concerned government agencies
cooperate to proceed with various measures, draw up promotion plans for each year, and follow up on
the progress of the plans.
Recent three-year Plans for the Promotion of Measures against Firearms are composed of thefollowing six major categories: (1) seizure of firearms concealed within Japan, (2) strengthening of
firearms seizures systems and closer partnerships with supervising organizations, (3) thoroughinvestigation and research and strict processing of crimes involving firearms, (4) appropriate promotionof border measures, (5) promotion of international cooperation, and (6) acquirement of understanding
and cooperation of Japanese nationals.
In addition, at the Meeting for the Promotion of Measures against Firearms in June 2016 (8th), the 2016
Plan for the Promotion of Measures against Firearms was formulated as the plan following the
Guidelines.
Note: Members of the Meeting for the Promotion of Measures against Firearms
Chief:

Chair of the National Public Safety Commission

Members: Assistant Chief Cabinet Secretary
Cabinet Public Relations Secretary
Director-General of Community Safety Bureau of National Police Agency
Director-General of the Criminal Investigation Bureau of National Police Agency
Chief of Organized Crime Department of the Criminal Investigation
Bureau of National Police Agency
Director-General of Minister’s Secretariat of Ministry of Public
Management Home Affairs, Posts and Telecommunications
Director-General of the Criminal Affairs Bureau of Ministry of JusticeDirector-General of Immigration Bureau of Ministry of JusticeDirector-General of Consular Affairs Bureau of Ministry of Foreign Affairs
Director-General of Foreign Policy Bureau of Ministry of Foreign Affairs
Director-General of the Customs and Tariff Bureau of Ministry of Finance
Deputy Director-General of Fisheries Agency
Director-General of Trade and Economic Cooperation Bureau of Ministry of-11-

Economy, Trade and Industry
Director-General of Policy Bureau of Ministry of Land, Infrastructure andTransport
Vice Commandant of Japan Coast Guard
Director-General of Nature Conservation Bureau of Ministry of the Environment-12-

2. Law Enforcement by Japan Customs
The volume of objectives for Customs control, such as passengers entering Japan and import cargo,is growing steadily. At the same time, modus operandi used by smugglers is getting increasingly
devious and crafty. Japan Customs, with its limited resources, is taking various measures in order tomeet these challenges and to conduct effective and efficient law enforcement at the border in recent
years.
Transition in the number of arriving passengers, etc.
Object of Control(Indicator)

2005（10years ago）

2011

2012

2013

2014

2015

Passengers

10000

2,491

2,420

2,772

2,881

3,121

3,610

(Arriving passengers)

people(100.0)(97.1)(111.3)(115.7)(125.3)(144.9)Commercial cargoes

10000

1,704

2,092

2,302

2,319

2,352

2,442

(Import permits/approvals)

people(100.0)(122.8)(135.1)(136.1)(138.0)(143.3)

International mail10000

10,545

9,266

10,158

11,956

11,164

10,046(Pieces of mail presented for import inspection)

pieces(100.0)(87.9)(96.3)(113.4)(105.9)(95.3)

Ships

10000

13.6

11.6

11.6

11.5

11.3

11.0

(Entering ships)

Ships(100.0)(85.3)(85.3)(84.6)(83.1)(80.9)

Aircraft

10000

16.0

19.0

19.0

19.5

21.1

23.6

(Entering aircraft)aircrafts(100.0)(118.8)(118.8)(121.9)(131.9)(147.5)(Note) 1. The number of arriving passengers derive from Annual Report on Statistic on Legal Migrants published by the Ministry ofJustice.（Data of 2014 are preliminary.）
2. Number of import permits/approvals and pieces of mail presented for import inspection are checked by the Customs
Clearance Division of the Japan Customs.(Data of 2014 are preliminary)
3. Number of entering ships and aircraft are checked by the Enforcement Division of the Japan Customs.
4. The figures in parentheses on the bottom are indexes with 2005 given as 100. (This applies hereafter.)Transition in the number of arriving passengers, etc. (The figures are indexes with 2005 given as 100.)-13-

( 1 )Consolidation of Organization for Enforcement
a. Utilization of prior information
For effective and efficient control, enforcement activities at the border, which actively uses the priorinformation, such as passenger name record,*1 are conducted.
*1 Passenger Name Record: Information on passenger reservation and boarding procedures by airline companies

b. Consolidation of an organization for wide-area enforcement
The Customs Surveillance and Control Center was established at Yokohama Customs to cope withorganized and large-scale smuggling cases. Providing support and coordination to each customs office,the Office conducts intensive wide-area enforcement activities against ships and crew members
involving two or more jurisdictions.

( 2 )Reinforcement of the Collection and Analysis of Information on Smugglinga. Introduction of intelligence-related posts
The post of Customs Manager Intelligence (to handle smuggling intelligence) was established ineach Customs office, and the post of Director for Intelligence and Information Systems and the
National Intelligence & Targeting Center which conducts nationwide collection and analysis of
information, were established in 2008. At the center of the organization, these officers
comprehensively manage and analyze smuggling-related information received from domestic law
enforcement authorities (such as police and coast guard), foreign customs and other sources, making
every effort to conduct effective intelligence analysis.

b. Strengthened cooperation with trade circles for better information collection
Customs has concluded Memoranda of Understanding (MOUs), aimed, inter alia, at ensuring greater
cooperation in the prevention of smuggling with organizations related to vessels, aircraft, commercial
cargo, and others.
( a ) Customs and Tariff Bureau of the Ministry of Finance:
The Japanese Shipowners’ Association,
The Scheduled Airlines Association of Japan,
The Japan Customs Brokers Association,
Japan Air Cargo Forwarders Association,
Japan Foreign Steamship Association andJapan Fisheries Association(6 organizations in total)( b ) Each regional Customs: Associations of transportation services and travel agencies under
the jurisdiction of each regional customs, fishery cooperatives, etc.
(28 organizations in total)-14-

c. Reporting means available from the public
Ongoing efforts to gather information from the public throughout the nation include the opening of asingle toll-free telephone number accessible 24 hours a day from everywhere across the nation, thedistribution of leaflets, and public relations activities, such as law enforcement countermeasures at theborder by Customs through Customs websites, Customs public relation videos, etc. Starting from May
2007, the information can be sent via the Internet.

Leaflet (for general people)

CUSTOMS WEBSITE

In addition, materials for port related organizations, fishery cooperatives,
logistics companies and warehouse companies have been made and distributed

SMUGGLING - HOTLINE: (24 hours a day: toll-free)

CUSTOMS WEBSITE

0120-461-961

http://www.customs.go.jp/english/index.htm(Call Customs, Ministry of Finance for information on smuggling.)

d. Utilization of the Information System
The Customs Intelligence Database System (CIS)—a computerized system capable of sorting out
and managing various information, such as Customs clearance for exports and imports as well as ship
entries and departures—has been introduced at Customs offices throughout the nation. Through the
improvement and reinforcement of the system for intelligence analysis, processing, and management,
intensive and efficient control of smuggling is being carried out at the border.
( 3 )Effective Use of Enforcement Equipment
a. Utilization of X-ray inspection equipment-15-

X-ray equipment both mobile and fixed have been installed at major regional Customs offices andhave demonstrated great performance in detecting goods harmful to society, such as illicit drugs
concealed skillfully in cargo and other goods.

In addition to ordinary X-ray equipment for cargoes, large-scale X-ray equipment for containerizedcargoes capable of inspecting containers without their being unloaded from their trailers and mobile
backscatter X-ray equipment for inspecting heavy items and lengthy cargoes have been installed inprincipal ports across the country since February 2001 and March 2006, respectively.

b. Utilization of Customs' patrol boat
Customs patrol boats dispatched from the customs
offices surveil wide area and control smuggling at
seaports or trade on the sea that uses fishing boats.

c. Utilization of Drug Detector Dogs
Drug detector dogs were introduced in 1979 tocope with increasing numbers of drug smuggling
cases. After that, Japan Customs has made use of
the dogs to inspect belongings carried by arriving
passengers as well as international mail.

d. Introduction of Port Monitoring Camera Systems
Since March 1996, highly sensitive monitoring cameras with night vision have been installed atmajor seaports to tighten controls over vessels, movement of goods, and persons at the port areas.

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( 4 ) Closer Cooperation with Relevant Agencies
a. Enforcement through cooperation with relevant agencies
With the aim of imposing effective controls at the border, Customs, police, Coast Guard, and otherorganizations are working in close cooperation, each making full use of its own information,organizational resources, jurisdiction, and experience. In more specific terms, Customs is conducting
joint training and joint operations together with the police and Coast Guard across the country.

b. Holding of Law Enforcement Meeting on Measures against Smuggling
The Customs and Tariff Bureau of the Ministry of Finance organizes Law Enforcement Meetings
on Measures against Smuggling to strengthen the cooperation with the ministries and agencies
concerned and promote the exchange of information needed to interdict smuggling cases. Thus,
information exchange is promoted at the national level. Regional Customs offices also organize
regional law enforcement meetings on smuggling with the law enforcement authorities concerned topromote information exchange at the regional level.
( 5 ) Promotion of International Information Exchange
a. Promotion of information exchange with foreign Customs administrations
As the only contact point of Japan Customs for information exchange with foreign customs
administrations, the International Intelligence Office has been established in Tokyo Customs. In orderto facilitate information exchange, Japan Customs improved rules for information provision toforeign customs administrations based on the tariff reform in March 1998 and concluded with various
foreign countries the Customs Mutual Assistance Agreement that includes provisions for informationexchange concerning the smuggling of illicit drugs and so on. (See "Present Condition of the
Customs Mutual Assistance Agreement.")
Using international networks, such as the ones managed by the World Customs Organization(WCO) and the Regional Intelligence Liaison Office (RILO) for Asia and the Pacific, Japan Customs
exchanges smuggling-related information and intelligence with foreign customs administrations and-17-other law enforcement authorities.

Note: The RILO (Regional Intelligence Liaison Office) is the base for the WCO regional projects,
which has been established for the purpose of promoting exchange of information on illicit
drugs among Customs administrations in the region and improving the intelligence analysis on
the trends of smuggling in the region.

The RILO for Asia and the Pacific, in which Japan Customs administration has a membership, wasestablished in Hong Kong as the first RILO of the world in December 1987. Japan Customs hosted
the RILO for Asia and the Pacific (located in Tokyo Customs) for the five years from January 1999
and has actively participated in the RILO project with many contributions. The RILO for Asia and thePacific, whose office was relocated to China (within Beijing Customs Office) in January 2004,
analyzes trends in smuggling within the region based on reports from participant countries andregions on interdicted cases of smuggling of illicit drugs and related objects, distributes the results toparticipating countries and other organizations, and facilitates the exchange of information between
customs administrations in these countries.

b. Information exchange under Customs Mutual Assistance Agreements
Customs is actively working to conclude Customs mutual assistance agreements that require
increased information exchange with the source and transit countries of illicit drugs and firearms.
Customs is also committed to increasing information exchange through Customs mutual assistanceagreements already concluded.

Note: Customs mutual assistance agreements provide the customs authorities of Japan and foreigncountries a legal framework for mutual assistance including information exchange. This
framework helps both customs authorities properly execute their respective laws andregulations, realize prompt customs clearance, and effectively police their borders for illicit
drugs, firearms, and other socially harmful goods, as well as goods infringing intellectual
property rights.

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<Present Condition of the Customs Mutual Assistance Agreement>
 CMAA (Customs Mutual Assistance Agreement)
U.S. (Jun. 1997), South Korea (Dec. 2004), China (Apr. 2006), EU (Feb. 2008),
Russia (May 2009), Netherlands (Mar. 2010), Italy (Apr. 2012),
South Africa (Jul. 2012), Germany (Dec. 2014), Spain (May 2015)
 Intergovernmental Agreements
Australia (Jun. 2003), NZ (Apr. 2004, Jun. 2014, revised), Canada (Jun. 2005),
Hong Kong (Jan. 2008), Macao (Sept. 2008), France (Jun. 2012), U.K. (Jun. 2013)
 EPAs (Note 1)
Singapore (Nov. 2002), Malaysia (Jul. 2006), Thailand (Nov. 2007),
Indonesia (Jul. 2008), Brunei (Jul. 2008), Philippines (Dec. 2008),
Switzerland (Sept. 2009), Vietnam (Oct. 2009), India (Aug. 2011),
Peru (Mar. 2012), Australia (Jan. 2015), TPP (Feb. 2015, entered),
Mongolia (Jun. 2016)(Note 1) Contains provisions on customs mutual assistance.
(Note 2)TPP signatories: Australia, Brunei Darussalam, Canada, Chile, Japan,
Malaysia, Mexico, NZ, Peru, Singapore, U.S., Vietnam(Note 3) The dates within parenthesis indicate the month and year of enactment(as of 7 Jun. 2016)c. Collecting smuggling-related information through the dispatch of officers
Customs officers are sent to the countries and regions that are likely to be sources for illicit drugs,
etc. smuggled into Japan to collect information on smuggling and establish mutual cooperative
relations with the foreign Customs administrations. In addition, Japan Customs dispatches officers
specialized in intelligence analysis to the countries and regions which are tackling offenses related toillicit drug smuggling to exchange views on the analysis of intelligence on source countries ofsmuggling, etc.

d. Participation in international conferences
Japan Customs is actively taking part in international conferences, such as the Enforcement
Committee of the WCO and WCO/RILO for Asia and the Pacific Contact Points Meetings, toexchange opinions and information on control of illicit drugs with various countries.

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( 6 ) Technical Cooperation in the Field of Customs Enforcement
Japan Customs has been providing developing countries with technical cooperation, including
training for their customs officers in order to improve the capacity of their customs authorities tocontrol smuggling at the border, such as the capability to collect and analyze information on illicit
drug smuggling and so on.

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