Framework and Methods of Decontamination Projects
3.1. Framework of Decontamination Projects
The Act on Special Measures and Emergency Response Implementation Policies

As the pollution of the environment caused by radioactive substances released by nuclear power station
accidents caused by the Great East Japan Earthquake occurred and it was an urgent task to quickly reducethe impact on human health and living environment, the “Act on Special Measures concerning theHandling of Environment Pollution by Radioactive Materials Discharged by TEPCO Nuclear Power
Station Accidents Associated with the Tohoku District – Off the Pacific Ocean Earthquake That Occurredon March 11, 2011” (Act No. 110, August 30, 2011) was promulgated and fully entered into force on
January 1, 2012.
Under this Act, the framework of measures such as the responsibilities of the national government, local
governments, related nuclear power companies, disposal of waste contaminated with radioactive materials,
and decontamination of soil contaminated with radioactive materials, etc. were established, and theMinister of the Environment was empowered to formulate basic policies and set standards.

55

Figure 3-1 Outline of the Act on Special Measures concerning the Handling of Environment Pollution
by Radioactive Materials

56Commentary Development of a new legislative framework to deal with contamination byradioactive materials
In Japan, since approaches had not been established for protective measures in cases where radioactive
substances associated with a nuclear power disaster exist (or remain) in the environment for a long periodof time, it was necessary to have a new legislative framework to deal with waste and soil contaminatedby radioactive materials.
For the Ministry of the Environment, it was imperative to process the disaster waste generated by theGreat East Japan Earthquake as an immediate task. At that time, there was an exemption provision onradioactive substances in the environmental law system at the time, but since the disaster waste was
likely to be contaminated with radioactive material, a “Disaster Waste Safety Assessment Committee”
was held in order to consider how to handle it. Next, the “Investigative Committee on Remediation” washeld to discuss basic policies and other matters based on the Act on Special Measures concerning theHandling of Environment Pollution by Radioactive Materials.
From September to December 2011, the Investigative Committee on Remediation was held four times
to designate Special Decontamination Areas (SDA) and Intensive Contamination Survey Areas (ICSA),
areas to define decontamination implementation plan, efficient decontamination methods, regulations
concerning collection, transportation and storage of removed soil, and matters and basic policies
stipulated in the Enforcement Rules for the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials. It also set up a working group consisting of experts,
local governments, contractors, etc., to examine the guidelines specifically explaining measures fordecontamination, etc. of soil, etc., under the Investigative Committee on Remediation, and the firstedition was released in December 2011.
Through these steps, in January 2012 the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials was fully enacted, policies were established to deal withcontamination by radioactive substances released in the environment (a framework describing who was
to do what), and for the first time, measures against radioactive substances were addressed in theenvironmental administration.

Commentary Radioactive substances and the Basic Environment Law
The Basic Environment Law (Act No. 91 of 1993) sets out basic policies concerning the preservationof the environment, and it stipulated that measures to prevent environmental pollution by radioactive
materials were to be covered under the Atomic Energy Basic Act (Act No. 186 of 1955). However, theBasic Environment Law was revised according to the Act for Establishment of the Nuclear Regulation
Authority (Act No. 47 of 2012) and the provision stipulating that it would be left to the Atomic Energy
Basic Act, etc. was deleted.
As a result, exclusionary provisions on radioactive materials were deleted from the Air Pollution
Control Act and the Water Pollution Control Law (Act No. 138 of 1970), and the Environmental Impact
Assessment Law (Act No. 81 of 1997), and the Minister of the Environment was given various roles
including monitoring.

57

The Central Environment Council submitted a special recommendation from the council chair, withrecommendations including that MOE to take initiative in responding to environmental pollution causedby radioactive materials scattered in the environment in April 2011, and in November 2011, comments
were submitted on the development of environmental legislation related to provisions on the exemptionof radioactive materials.

Commentary Decontamination by municipalities
According to the conventional concept of disaster response, municipalities were supposed to takedisaster measures as their responsibilities (municipal affairs) under the Disaster Countermeasures BasicAct .
Also, as municipalities are familiar with local circumstances, discussion was carried out in principle
by municipalities implementing decontamination.
However , it was decided that in regions in which it was difficult to sufficiently fulfill administrative
functions owing to evacuation orders, the national government would implement the decontamination.
In the "Basic Policy for Emergency Response on Decontamination Work” (Nuclear Emergency
Response Headquarters, August 26, 2011), it was decided that “the planned decontamination in thecommunity unit is most effective since administrative functions are in the area, residents are living there,
and it is easy grasping circumstances and residents’ needs.”

58

The Nuclear Emergency Response Headquarters adopted the “Basic Policy for Emergency Response on
Decontamination Work” on August 26, 2011, and indicated the policy of decontamination until theenactment of the Act on Special Measures concerning the Handling of Environment Pollution byRadioactive Materials.
The Basic Policy, in areas under evacuation orders, indicates that the national government carries out
decontamination, as long-term goal, in the area of 20 mSv or less per year, the aim for additional radiationdose is 1 mSv or less per year, and the national government provides technical and financial support forthe creation and implementation of municipal decontamination plans..
<Provisional Target for decontamination implementation>① Based on Basic Recommendations from the International Commission on Radiological Protection (ICRP)
in 2007 and the “Basic Approach” of the Nuclear Safety Commission, the aim is to step-by-step andquickly reduce the size of areas in an emergency exposure situation (additional annual radiation dose ofover 20 mSv/y).
② As a long-term goal, the aim is to bring the additional annual radiation dose to less than 1 mSv/y inexisting exposure situations (less than 20 mSv/y).
③ The aim is to realize a state in which estimated annual radiation dose of the general public is reduced byabout 50% within two years in areas contaminated with radioactive materials. (Due to natural decay ofradioactive materials and natural factors such as wind and rain, the estimated annual radiation dose at theend of two years will be reduced by about 40% compared to the present time. The aim is to realize theabove by reducing contamination by decontamination by at least about 10%, and promote further
reductions).
④ By thoroughly decontaminating the living environment of children, such as schools and parks over the
next two years, the aim is to realize a situation in which estimated annual radiation dose of children is
reduced by about 60% within two years. (Due to natural decay of radioactive materials and natural factors
such as wind and rain, the estimated annual radiation dose at the end of two years will be reduced byabout 40% compared to the present time. The aim is to realize the above 60% by reducing contamination
by decontamination by at least about 20%, and promote further reductions.)⑤ The above goals will be repeatedly revised through regular reviews such as detailed monitoring and data
accumulation, investigation of children’s actual radiation doses, decontamination model projects, etc., andregularly review the targets.
<Treatment of soil, etc., arising from decontamination>① Regarding the treatment of soil, etc., it is the responsibility of the national government to secure landfill
sites that require long-term management and to ensure their safety, and to promptly make and publish aroad map for their construction.
② It is realistic to have Temporary Storage Sites in each municipality or community for the soil, etc.,
currently arising from decontamination, and the national government will make every effort on financial
and technical aspects to support efforts by municipalities.
59

On November 11, 2011, the Cabinet decided on the Basic Policy based on the Act on Special Measures on
Handling of Environment Pollution by Radioactive Materials, and it summarized approaches concerning
monitoring and measuring the situation of pollution of the environment, treatment of waste contaminated byradioactive materials from the accident, and measures for decontamination, etc., of soil, etc. In addition,
adopting the approach in the “Basic Policy for Emergency Response on Decontamination Work,” it also
specified that for areas where the additional annual radiation dose is less than 20 mSv/y, the additionalradiation dose should be 1 mSv/y or less as a long-term goal. In addition, it was decided that MOE would
decontaminate Special Decontamination Areas.
Therefore it was decided to promote measures including the removal of contamination by radioactive
materials in order to quickly reduce the impacts of environmental pollution on human health or living
environment by radioactive materials from the accident.
According to the Basic Policy, the following goals were set and it was decided that reviews should be
carried out as necessary based on the effects of measures for decontamination of the soil, etc.
① Areas where the additional annual radiation dose is 20 mSv/y or more.
· Reduce the size of area step by step and as quickly as possible.
· Keep in mind that long-term efforts are necessary for areas with particularly high doses.
② Areas where the additional annual radiation dose is less than 20 mSv/y· Reduce the additional radiation dose to 1 mSv/y or lower over the long-term.
· Reduce the additional annual radiation dose the public is exposed to by around 50% (including thephysical decay of radioactive materials) by the end of August 2013 from the level at the end of August
2011.
· Reduce the additional annual radiation dose affecting children by around 60% (including the physicaldecay of radioactive materials) by the end of August 2013 from the level at the end of August 2011.

60

Figure 3-2 Efforts based on the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials

61

Figure 3-3 Efforts of national, prefectural, and municipal governments concerning decontamination

62

The Act on Special Measures concerning the Handling of Environment Pollution by Radioactive
Materials defines Special Decontamination Areas (SDA) and Intensive Contamination Survey Areas(ICSA). A Ministerial Ordinance to Specify Criteria for Area Designations was promulgated on December
14, 2011. Based on this ministerial ordinance, on December 28, 2011 and February 28, 2012, 11
municipalities were designated as SDA (population approx. 80,000 people before evacuation, area approx.
1,150 km2), and 104 municipalities in 8 prefectures were designated as ICSA (population approx. 6.9
million people, area approx. 24,000 km2) (of which 4 municipalities overlap with SDA).
Special Decontamination Areas (SDA)
Special Decontamination Areas were designated where the whole area or most of the area is or was a
Restricted Area or Deliberate Evacuation Area, and it was decided that MOE would establish
decontamination implementation plans and implement decontamination.
Specifically, this applied to Naraha Town, Tomioka Town, Okuma Town, Futaba Town, Namie Town,
Katsurao Village and Iitate Village, as well as Tamura City, Minamisoma City, Kawamata Town, andKawauchi Village, which had been Restricted Areas or Deliberate Evacuation Areas, while most of thearea of Naraha Town had been designated as a Restricted Area, so the whole area was designated as aSpecial Decontamination Area.
Regarding how to decontaminate in Special Decontamination Areas, MOE formulated a policy fordecontamination (Decontamination Roadmap) as described below.
Intensive Contamination Survey Areas (ICSA)The Minister of the Environment has focused on areas where environmental contamination caused byradioactive materials from the accident does not conform to the requirements specified by MOE (radiationdose less than 0.23 μSv/h) or where there is a risk of environmental contamination Survey Designate as anarea that needs to be measured. In municipalities designated as Intensive Contamination Survey Areas(ICSA), decontamination is to be carried out after establishing decontamination implementation plan, fordecontamination implementation areas that meet certain criteria based on survey results.
Under the Basic Policy of the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials (adopted by Cabinet decision on November 11, 2011) those areas anddistricts are specified as areas (or districts) where the additional radiation dose of the area (or district) is 1
mSv/y or more. Under an ordinance of the Minister of the Environment established on December 14, 2011
based on the Act on Special Measures concerning the Handling of Environment Pollution by Radioactive
Materials, where it is difficult to ascertain the additional radiation dose quickly and in detail and to reduce
additional exposure as promptly as possible by decontamination. And from the viewpoint of reduction byadditional radiation dose, 0.23 μSv/h, which is the value obtained by replacing the annual 1 mSv/y withthe air dose rate using an estimation formula making assumptions on the safe side, was used as the criterion
for judging the areas (or districts).
As Intensive Contamination Survey Areas (ICSA), 102 municipalities were designated in December

632011, and then two towns were designated in February 2012. Of the 104 designated municipalities, thedesignation was lifted for 12 municipalities by the end of December 2017.
Souma City

Date City

Intensive Contamination
Survey Areas

Iwate
Prefecture

IitateVillage
MiyagiPrefecture

Kawamata
Town
Minamisoma City

Special Decontamination

Nihonmatsu
City

Area

Katsurao
Village

Namie
Town

FutabaTown

TamuraCity

Fukushima
Prefecture

TEPCO
Fukushima
Daiichi NPS

Okuma
Town

KawauchiVillageOno Town

Tomioka
Town

Gunma
Prefecture
TEPCO
Fukushima
Daini NPS

Iwaki City

Tochigi
Prefecture
IbarakiPrefecture

SaitamaPrefecture

NarahaTown
Special Decontamination
Areas

Chiba
Prefecture

Hirono Town

Figure 3-4 Special Decontamination Areas (SDA)TEPCO
Fukushima
DaiichiNPS

Figure 3-5 Intensive Contamination Survey Areas(ICSA) (at peak)

Table 3-1 Designation status of Intensive Contamination Survey Areas (ICSA)(as of the end of December, 2017)
Prefecture
Intensive Contamination Survey Areas
Fukushima Fukushima City, Koriyama City, Iwaki City, Shirakawa City,
Pref. (41) Sukagawa City, Soma City, Nihonmatsu City, Date City, Motomiya
City, Koori Town, Kunimi Town, Otama Village, Kagamiishi Town ,Tenei Village, Aizubange Town, Yugawa Village, Aizumisato Town,
Nishigo Village, Izumizaki Village, Nakajima Village, Yabuki Town,
Tanagura Town, Samegawa Village, Ishikawa Town, Tamagawa
Village, Hirata Village, Asakawa Town, Furudono Town, Miharu
Town, Ono Town, Hirono Town, Shinchi Town, Tamura City,
Minamisoma City, Kawamata Town, Kawauchi Village (36)
Iwate
Ichinoseki City, Oshu City, Hiraizumi Town (3)Pref.(3)MiyagiShiroishi City, Kakuda City, Kurihara City, Shichikashuku Town,
Pref. (9)Ogawara Town, Marumori Town, Watari Town, Yamamoto Town
(8)
Ibaraki
Hitachi City, Tsuchiura City, Ryugasaki City, Joso City, Hitachiota
Pref. (20) City, Takahagi City, Kitaibaraki City, Toride City, Ushiku City,
Tsukuba City, Hitachinaka City, Kashima City, Moriya City, Inashiki
City, Tsukubamirai City, Tokai Village, Miho Village, Ami Town,
Tone Town (19)64

Designation lifted
Mishima Town,
Showa Village,
Yanaizu Town,
Yamatsuri Town,
Hanawa Town (5)Ishinomaki City (1)Hokota City (1)Prefecture
Tochigi
Pref.(8)Gunma
Pref. (12)Intensive Contamination Survey Areas
Designation lifted
Kanuma City, Nikko City, Otawara City, Yaita City, Nasushiobara Sano City (1)City, Shioya Town, Nasu Town (7)Kiryu City, Numata City, Shibukawa City, Midori City, Shimonita Katashina
Town, Takayama Village, Higashiagatsuma Town, Kawaba Village (8) village,Minakami
Town, Annaka City、
Nakanojo Town (4)Misato City, Yoshikawa City (2)SaitamaPref. (2)Chiba Pref. Matsudo City, Noda City, Sakura City, Kashiwa City, Nagareyama(9)City, Abiko City, Kamagaya City, Inzai City, Shiroi City (9)Note: Numbers in () are the number of municipalities

Table 3-2 Numbers of Intensive Contamination Survey Areas (ICSA)
Date of designation orcancellation

Name of municipality (prefecture)

Designated 102 Municipalities
simultaneously
Watari Town (Miyagi Pref.), Yanaizu
Town (Fukushima Pref.)Showa Village (Fukushima Pref.),
Katashina Village, Minakami Town
(Gunma Pref.)Remaining
designatedmunicipalities

DesignatedDecember 28, 2011

DesignatedFebruary 28, 2012

LiftedDecember 27, 2012

LiftedJune 25, 2013

Ishinomaki City (Miyagi Pref.)100

LiftedNovember 17, 2014

Mishima Town (Fukushima Pref.)99

LiftedMarch 14, 2016

Hokota City (Ibaraki Pref.)98

LiftedMarch 31, 2016

Sano City (Tochigi Pref.)97

LiftedSeptember 8, 2016

Yamatsuri Town (Fukushima Pref.)96

LiftedNovember 29, 2016

LiftedMarch 22, 2017

Yanaizu Town, Hanawa Town
(Fukushima Pref.)Annaka City, Nakanojo Town (Gunma
Pref.)

102
104
101

94
92

Relevant Guidelines etc.

After the promulgation of the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials, basic policies and ministerial ordinances were prepared, and Special
Decontamination Areas were designated for the national government to implement measures fordecontamination, etc.
Based on that, most areas that at the time corresponded to Restricted Areas or Deliberate Evacuation
Areas were designated as the Special Decontamination Areas, and after listening to opinions of themunicipal mayors concerned, etc., it was decided that the Minister of the Environment would formulate65

“Decontamination Implementation Plans in Special Areas” concerning implementation of measures fordecontamination, etc., and based on these plans, MOE would proceed with decontamination whileobtaining cooperation, including human resources, from the relevant ministries and agencies.
On January 26, 2012, MOE publicly released the “Policy for Decontamination in Special
Decontamination Areas” (Decontamination Roadmap), which specified the series of steps consisting of
decontamination model projects, preliminary decontamination, and whole area decontamination andprocesses, etc., for each of the areas as the policy for decontamination in Special Decontamination Areas.
Furthermore, it deemed that the goal of lifting the evacuation orders would be the return of the residents
and the rebuilding of their lives, so the development of life infrastructure and the restoration of municipal
office functions, etc. were to be advanced together.
In the Special Decontamination Areas, the basic idea is that the Cabinet Office and MOE will carry out
preliminary decontamination for municipal offices and infrastructure, and then proceed to whole area
decontamination. For whole area decontamination, access is required for decontamination sites, as it isnecessary to proceed with the consent of people concerned with the land, as shown in the figure.
Also, as decontamination generates a large amount of removed soil, it is necessary to secure Temporary
Storage Sites.
In the Special Decontamination Areas, areas are classified based on radiation dose and the difficulty ofdecontamination varies accordingly, so it was decided to start decontamination with areas that had a low
dose, and with the exception of Areas where Returning is Difficult, to aim for wide area decontaminationand to transport materials to the Temporary Storage Sites by the end of March 2014.

66

Policy of Decontamination in Special Decontamination Areas
Point of Decontamination Roadmap

Figure 3-6 Outline of Decontamination Roadmap (January 2012)67

Figure 3-7 Process chart of the Decontamination Roadmap (January 2012)

68

The soil and waste (hereinafter referred to as “removed soil, etc.”) removed by the decontamination
work of radioactive materials released following the TEPCO Fukushima Daiichi Nuclear Power Station
incident must be stored properly until final disposal.
According to the “Basic Policy for Emergency Response on Decontamination Work” (August 26, 2011
Nuclear Emergency Response Headquarters) regarding the disposal of waste and soil contaminated withradioactive materials, the national government is responsible for securing landfill sites that require longterm management and for ensuring their safety. Meanwhile, it takes time to secure and prepare landfill
sites that require long-term management, so in order to promote decontamination quickly, the policy statesthat for the time being it is practical to have the removed soil stored at Temporary Storage Sites in eachmunicipality or community.
In response to this, on October 29, 2011 MOE released a statement on “About basic concepts of Interim
Storage Facility, etc., necessary for coping with environmental pollution caused by the TEPCO Fukushima
Daiichi Nuclear Power Station accident.” Within Fukushima Prefecture, it was decided that removed soils,etc., associated with decontamination would be temporarily stored in onsite storage and Temporary Storage
Sites, and thereafter all would be stored in Interim Storage Facility. For other prefectures, it was expectedthat the amount of removed soil would be relatively small, and the degree of contamination relatively low,
it was decided to proceed with the use of existing controlled-type landfill sites, etc., and not to think about
Interim Storage Facility.

Preparation of decontamination implementation plans for Special Decontamination Areas
Based on the Act on Special Measures concerning the Handling of Environment Pollution byRadioactive Materials, MOE formulated a decontamination implementation plan for each municipality andset out basic policies and targets concerning the implementation of decontamination and basic mattersconcerning measures necessary for achieving the goals. The MOE conducted decontamination according
to these plans.
The situation and circumstances in each municipality differed, though there were various ideas about
decontamination and timing, but it was decided to proceed with decontamination starting with the plansthat could be formulated for each municipality.
The Minister of the Environment was to formulate the decontamination implementation plans, listening
to the opinions of the heads of the municipalities concerned and the governor of the prefecture. The plans
were formulated after meetings with the concerned municipalities and explanations and opinion exchanges
with residents, regarding the radiation and pollution situation, decontamination methods and effects, etc.

69

Table 3-3 Formulation of decontamination implementation plans
Municipality
Tamura City

Timing of formulation of decontamination implementation plan
Formulated April 13, 2012

Naraha Town

Formulated April 13, 2012, revised in October, 2012

Kawauchi Village

Formulated April 13, 2012

Iitate Village

Formulated as of May 24, 2012, partly revised on December 26, 2013

Minamisoma City

Formulated on April 18, 2012, partly revised on December 26, 2013

Katsurao Village

Formulated on September 28, 2012, partly revised on December 26, 2013

Kawamata Town

Formulated on August 10, 2012, partly revised on December 26, 2013

Namie Town

Formulated November 21, 2012, partly revised December 26, 2013

Okuma Town

Formulated December 28, 2012

Tomioka Town

Formulated as of June 26, 2013, partly revised on December 26, 2013

Futaba Town

Established July 15, 2014

Table 3-4 Examples of contents of Decontamination Implementation Plans in Special
Decontamination Areas
1. Policy concerning implementation of measures for decontamination, etc.
2. Goal of Decontamination Implementation Plans in Special Areas
3. Basic matters concerning measures necessary for achieving the goal of Decontamination
Implementation Plans in Special Areas(1) Target and schedule of measures for decontamination, etc.
(2) Methods concerning measures for decontamination, etc.
(3) Process relating to measures for decontamination, etc.
① Identifying persons concerned with buildings, land, etc.
② Obtaining permission for entering land etc.
③ Measurement of radiation doses, etc., investigation of condition of buildings, land etc.
④ Determination of methods concerning measures for decontamination, etc.
⑤ Explanation of methods concerning measures for decontamination, etc.; securing consent formeasures for decontamination, etc.
⑥ Conducting work on measures for decontamination, etc.
⑦ Measurement of post-work dose
⑧ Reporting of results etc.
4. Other necessary matters concerning implementation of measures for decontamination, etc.,
concerning Special Decontamination Areas(1) Measures for decontamination, etc., of wide-area infrastructure(2) Promotion of risk communication(3) Measures of radiation protection for the workers(4) Review of Decontamination Implementation Plans in Special Areas70Decontamination implementation plans in Intensive Contamination Survey Areas (ICSA)
In municipalities designated as Intensive Contamination Survey Areas (ICSA), each municipality
investigates the pollution situation of the environment with radioactive materials and judges the necessityof decontamination implementation. In conducting decontamination, the municipal mayor, based on the
results of the survey, formulates the decontamination implementation plan, specifying the area where
decontamination is to be carried out, the implementation method, the implementing body, the priority ofdecontamination, and the execution timing, etc. In addition, where decontamination is carried out by thenational government, a or prefecture, independent administrative agency, national university corporation,etc., as the administrator of a facility, etc., it is necessary to cover the decontamination of that facility
within the decontamination implementation plan of the municipality where the facility, etc., is located.
Consultation with the Minister of the Environment is necessary for formulation of the plan, and MOE is
to confirm the appropriateness of the plan content.
As a result of radiation dose measurement, the radiation dose in an area can in some cases fall due tonatural decay, etc., below 0.23 μSv/h, which is the designation criteria for Intensive Contamination Survey
Areas (ICSA), and so decontamination implementation plans are not formulated for them, but among the
104 municipalities designated as Intensive Contamination Survey Areas (ICSA), decontamination
implementation plans were formulated and decontamination was implemented in 93 municipalities basedon the Act on Special Measures concerning the Handling of Environment Pollution by Radioactive
Materials.

713.2. Decontamination Implementation Systems
National Systems

In order to promote emergency measures for the TEPCO Fukushima Daiichi Nuclear Power Station
accident, in accordance with the Special Measures Law for Nuclear Emergency Preparedness Measures,on March 11, 2011, immediately after the accident, the “Nuclear Emergency Response Headquarters forthe 2011 TEPCO Fukushima Daiichi and Daini Nuclear Power Station Accident” was established at thePrime Minister’s official residence.
In addition, the Cabinet Office established “nuclear disaster victim life support team” under the Nuclear
Emergency Response Headquarters (NERHQ) on March 29, 2011.
On August 24, 2011, in order to promote decontamination in Fukushima Prefecture, the Fukushima
Decontamination Promotion Team was established consisting of government officials (10 members fromthe Cabinet Office, 6 members from MOE, and 22 experts of the Japan Atomic Energy Agency) in
Fukushima City, and it worked in cooperation with the Nuclear Emergency Response Headquarters to
support communication and coordination with municipalities, support the formulation of decontamination
implementation plans (by dispatching experts, etc.), and promoting activities of the national government
including model decontamination projects.
In addition, the “Basic Act on Reconstruction in Response to the Great East Japan” (Act No. 76 of 2011)
was promulgated on June 24, 2011, with the aim of promoting smooth and prompt reconstruction from the“Basic Act on Reconstruction in Response to the Great East Japan Earthquake” and revitalizing Japan, andbased on this basic philosophy, the “Act on Special Measures for the Reconstruction and Revitalization of
Fukushima” (Act No. 25 of 2012) was promulgated on March 31, 2012 to promote the reconstruction andrecovery of Fukushima from the nuclear disaster. In accordance with the East Japan Great Earthquake
Disaster Recovery Basic Act, the “Reconstruction Agency Establishment Act” (Act No. 125 of 2011) was
passed on December 9, 2011, and the Reconstruction Agency was established on February 10, 2012.
In order to strengthen the implementation functions on the ground in terms of measures related to thereconstruction of Fukushima from the nuclear disaster, and quickly make judgments at the site of theaffected areas, “Fukushima Reconstruction and Revitalization Administration” was established in
Fukushima City on February 1, 2013 as an organization to oversee the Fukushima Reconstruction Bureauof the Reconstruction Agency, the Fukushima Decontamination Promotion Team, MOE, the Fukushima
Environmental Revitalization Office, and the Nuclear Emergency Response Local Headquarters.
In addition, the Fukushima Decontamination Promotion Team was reorganized in April 2013 to become
the Fukushima Environmental Revitalization Headquarters, and the Fukushima Office for Environmental
Restoration became the Fukushima Regional Environmental Office in April 2017.

72

Fukushima Bureau of Reconstruction andRevitalization (Fukushima)

Fukushima
1. Establish "Fukushima Bureau of
Reconstruction and Revitalization"

Director General① Improve the system of local relations political affairs with the reconstruction
minister as the leader.
② Under that, the Deputy Secretary of the RA, the local top of MOE, METI, etc.
are arranged in addition to participating in the Cabinet Secretariat as asecretariat.
③ By unitizing the structure including decontamination, the Minister ofReconstruction supervises and conducts himselves, instantly and promptly on
site.

[Members]

Yoshino Minister of Reconstruction (Minister in charge of the
Revival from the Nuclear Accident at Fukushima)
Hamada Vice-Minister of Reconstruction
Mutou Director of Nuclear Emergency Response Headquarters(Vice-Minister of METI)Itou
Vice-Minister of MOE

Secretariat
Special Advisor to the Cabinet ( Director of secretariat)
Vice-Minister of Reconstruction Agency
Director General for Reconstruction Agency, Director General of Fukushima
Reconstruction Bureau
Director of Nuclear Emergency Response Headquarters (METI)Administrative Chief of Headquarters of Fukushima Environmental
Restoration (MOE) etc.

2. Resident in Fukushima of executive officer ofthe main office
Top class officer such as Special Advisor to the Cabinet, Vice-Minister, Director
General, etc. stay resident in Fukushima.

3. Integrated operation of local organization

Fukushima
Bureau ofReconstruction

Gathering related officials of the ER Office and NERHQ to the Fukushima
Reconstruction Bureau and resident.

Fukushima Regional
Environmental Office(Decontamination,
Waste disposal)

Local Nuclear
Emergency Response
Headquarters(Area Management,
Area Reconsideration)Tokyo
1. Establish "Fukushima Reconstruction
Revitalization Headquarters"① Strengthen government's central functions through direct control of Ministerof Reconstruction.
② The Minister directly supervise the director general of the relevant ministries
and agencies.

2. Strengthening response system for Fukushima①.New establishment of supervisor charged in Fukushima.
② Strengthen the Fukushima response system by moving the Cabinet Officenuclear disaster victims' life support team (responsible for operation and review of
the area under evacuation order) into the Reconstruction Agency

Headquarters for Fukushima
Reconstruction and Revitalization (Tokyo)
Director General Yoshino Minister of Reconstruction (Minister in charge of the Revival from the
Nuclear Accident at Fukushima)
Affiliated Ministries
Reconstruction Agency, National Police Agency, Cabinet Office Nuclear Accident Victims Life
Support Team, Consumer Affairs Agency, Ministry of Internal Affairs and Communications, Ministry of
Education, Culture, Sports, Science and Technology, Ministry of Health, Labor and Welfare, Ministry ofAgriculture, Forestry and Fisheries, Ministry of Economy, Trade and Industry, Ministry of Land,
Infrastructure, Transport and Tourism, Ministry of Environment, Nuclear Regulation Authority, etc.

Figure 3-8 Organization of the Fukushima Reconstruction and Restoration Administration(as of February 2018)

After the Great East Japan Earthquake, MOE responded immediately after the accident, including
attending the government’s emergency disaster headquarters and dispatching staff of MOE to theemergency response local headquarters in Fukushima Prefecture. However, from the environmental
legislation at the time, matters concerning pollution of the environment with radioactive substances are
excluded from the Basic Environment Law (Act No. 91 of 1993), so concerning radioactive substances,
MOE only conducted surveillance of environmental radiation, etc., on remote islands. Therefore, at thetime of the accident, there was no one in MOE within the concept of “decontamination to eliminate
environmental pollution by radioactive substances,” and few people with specialized knowledge.
In that context, as an immediate problem, it was necessary to promptly process the disaster waste
generated from the Great East Japan Earthquake, so from April 2011, MOE’s Waste and Recycling
Department (at the time) considered how to deal with disaster waste that was contaminated by radioactive
material. Furthermore, regarding the measures for soil contaminated with radioactive material, fromaround the same time, discussions began mainly by personnel in the Soil Environment Management
Division, Environmental Management Bureau (MOE), which has expertise in dealing with soil
contamination caused by hazardous waste. Since the contents of consideration varied widely, a team waslaunched on June 1, within Environmental Management Bureau to discuss decontamination. At the timeof launch, it was composed of 15 members including a chief of operations, and it was later officiallyrecognized as the “Action Team for the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials.”

73

Thereafter as well, based on the existing organization within the ministry, such as the Waste Management
and Recycling Department and Environmental Management Bureau, cross-organizational teams such as
the Decontamination Team and Designated Waste Management Team moved ahead with decontamination
efforts while expanding the organization.
Furthermore, as reconstruction reached a new stage, in order to accelerate the entire Ministry’s recovery
and reconstruction efforts for the environmental restoration of the affected areas, starting on July 14, 2017,
the measures to deal with integrated waste and recycling measures against radioactive materials pollution,and reorganized into the Environmental Regeneration and Materials Cycles Bureau.

Ministry of the Environment

at the beginning of
平成 23
年当初
2011
(Decontamination)
MOE
Decontamination
Team
about 30 people(Waste Disposal)
Designated Waste
Treatment Team
about 10 people
Incineration ash treatment Team
Sewage treatment Team

as of 24
January
2012
平成
年１月時点
(Decontamination)
MOE
Decontamination
Team
about 60 people

Rice straw etc. Processing Team

Fukushima
DecontaminationTeam
31 people

Waste treatment Facility

Incineration ash treatment Team

MOE
Decontamination
Team
about 60 people

Sewage treatment Team

Fukushima
Decontamination
Team
about 60 people

Agricultural Facility(Waste Disposal)
Designated Waste
Treatment Team
about 30 people
Incineration ash treatment Team
Sewage treatment Team
Rice straw etc. Processing Team

Rice straw etc. Processing Team

Sewage treatment Facility

Site(Waste Disposal)
Designated Waste
Treatment Team
about 10 people

平成24April
年４月時点
as of
2012
(Decontamination)

Fukushima
Decontamination Team
about 200 people
Waste treatment Facility

Waste treatment Facility

Sewage treatment Facility

Sewage treatment Facility

Agricultural Facility

Local Branch Office

Agricultural Facility

Site

Figure 3-9 Evolution of expansion of Ministry of the Environment organization for decontamination
and waste disposal (2011-2012)74

In order to implement decontamination and support of municipalities on the ground in Fukushima
Prefecture and other areas, the Fukushima Decontamination Promotion Team was established on August24, 2011, and MOE personnel began to be stationed there. From immediately after promulgation of the
Act on Special Measures concerning the Handling of Environment Pollution by Radioactive Materials, theTeam assisted in the formulation of decontamination implementation plans (including the dispatch ofexperts) in cooperation with the Nuclear Emergency Response Local Headquarters, in communication andcoordination with municipalities, and in collaboration with JAEA. In addition, it cooperated in the
promotion of the national government's decontamination model projects implemented by the Cabinet
Office in 12 municipalities that had Restricted Areas and Deliberate Evacuation Areas (note that model
projects were actually prepared and organized in 11 municipalities).
In accordance with the full enforcement of the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials, new organizational personnel numbers were approved
based on a supplemental budget, and on January 4, 2012, the Fukushima Office for Environmental
Restoration was opened in Fukushima City as a base for promoting decontamination in Fukushima
Prefecture and other areas, promoting the disposal of contaminated waste, and promoting environmental
restoration.
Initially the number of personnel was 69 (31 from the Fukushima Decontamination Promotion Team of
MOE, 15 as loaned staff from the Ministry of Agriculture, Forestry and Fisheries, and 23 hired from theprivate sector).
In April 2012, in order to work closer with the local community and respond to the growing scale of thedecontamination work, MOE increased the number of personnel to 210 persons, and five branch offices
were established in Fukushima Prefecture. In addition, a decision was made to set up an accounting bodywithin the Fukushima Office for Environmental Restoration, and from then on, any business concerning
contracts to be executed locally was implemented centrally by the Fukushima Office for Environmental
Restoration.
The number of personnel continued to increase due in part to the acceleration of decontamination workand dealing with Interim Storage Facility, etc., to the point that there were 591 personnel at the end of 2017.
In addition, from December 5, 2014, the “Hamadori Office for Interim Storage Facility” was establishedto deal with Interim Storage Facility.
At the Fukushima Office for Environmental Restoration, MOE implemented projects to promote
decontamination and proper management of removed soil in Special Decontamination Areas; implemented
projects to dispose of contaminated waste; implemented coordination work with 11 municipalities forSpecial Decontamination Areas; and conducted collaboration and cooperation with the Reconstruction
Agency and Nuclear Emergency Response Local Headquarters, etc. In addition, the Office provided
consultation and coordination regarding planning and details of decontamination work performed bymunicipalities in Iwate Prefecture, Miyagi Prefecture, and Fukushima Prefecture, and dispatched personnel
responsible for decontamination to municipal branch offices, etc., to provide fine-grained support to75

municipalities. The Kanto Regional Environmental Office is in charge of consultation and coordination
concerning planning and details of decontamination work performed by municipalities in Ibaraki
Prefecture, Tochigi Prefecture, Gunma Prefecture, Saitama Prefecture, and Chiba Prefecture.
In addition, MOE and Fukushima Prefecture established a “Decontamination Information Plaza"(currently the Environmental Restoration Plaza) in front of Fukushima Station in January 2012. The Plaza
provided information on decontamination and radiation to the general public. With cooperation from JAEA
and TEPCO, it also dispatched experts in decontamination and radiation protection to the schools as oneof its activities.
The Fukushima Office for Environmental Restoration was initially started to function as the Tohoku
Regional Environmental Office, but starting in July 14, 2017, it became the Fukushima Regional
Environmental Office. Meanwhile, the Fukushima Decontamination Promotion Team established in 2011
became the Headquarters for Fukushima Environmental Restoration in April 2013, and was maderesponsible for overall coordination, including the Fukushima Regional Environmental Office.

Headquarter of Fukushima Office of Environmental Restoration
Fukushima Regional Environmental Office (Fukushima City) Number of staff; 591 ( as of 2017)
the general affairs section., the planning section, accounting section
Decontamination section 1, section2
Radioactive waste management section 1, section2
Volume reduction Facility preparation section

Interim Storage Facility Preparation OfficePlanning section, Construction section,
Maintenance section, Estate maintenance section,
estate compensation section

Radiation Health Care Officer
North Branch(Fukushima
City)

Central/South Branch(Koriyama
City)

Hamadori
HamadoriSouth Branch North Branch(Hirono Town) (Minamisoma
City)

ISF
Hamadori
Office(Iwaki City)

Radiation HealthManagemant
Office(Iwaki City)

SDWLFManagemant
Office(Tomioka Town)

Environmental Restoration Plaza
Radiation Risk Communication Counselor Support Center

Figure 3-10 Responsibilities and organization of the Fukushima Regional Environmental Office(as of September 2017)76

Table 3-5 Outline of Fukushima Regional Environmental Office (Branch Offices)(as of November 2016)
Branch nameNorth Prefectural Branch

Location
Fukushima City

Mid and South Prefectural
BranchAizu Branch

Koriyama City
Aizuwakamatsu City

Hamadori North Branch
Hamadori South Branch

Minamisoma City
Hirono Town

Interim Storage Facility
Hamadori Office
Radiation HealthManagement Office

600名
600

Municipality responsible
Kawamata Town, Iitate Village, Fukushima City,
etc. and Outside of Fukushima Pref.(Iwate Pref.
Miyagi Pref.)Tamura City, Tomioka Town, Futaba Town,
Katsurao Village, Koriyama City, Sukagawa City,
etc.
Okuma Town, Aizubange Town, Yugawa Village,
Aizumisato Town, etc.
Minamisoma City, Namie Town, Soma City, etc.
Naraha Town, Iwaki City, Kawauchi Village,
Hirono Town, etc.

Iwaki City-

Iwaki City-

(people)

500名
500

528名
528

400名
400

591
591名

390名
390

300名
300

312名
312

200名
200
100名
100

562名
562

210名
210
40
40名

0名 0
FY2011 平成24年度
FY2012 平成25年度
FY2013 平成26年度
FY2014 平成27年度
FY2015 平成28年度
FY2016 平成29年度
FY2017平成23年度Figure 3-11 Personnel numbers at the Fukushima Regional Environmental Office77Column“ Decontamination projects and personnel at Fukushima Office for Environmental
Restoration ”

Mr. Takashi Omura, Committee Member.

In decontamination work in Special Decontamination Areas, the Fukushima Office for Environmental
Restoration conducted a series of tasks including declaration of decontamination implementation plan,
coordination with local municipalities and prefectures concerning this, securing of Temporary Storage
Sites, acquisition of consent from owners of decontamination target land and buildings, the ordering andsupervision of decontamination work, the implementation of preliminary and supplemental monitoring,and reporting to residents, etc. (Initially, preliminary monitoring was ordered by MOE.)
In addition to personnel dispatched from MOE, the Fukushima Office for Environmental Restoration
also employed personnel dispatched from the Ministry of Agriculture, Forestry and Fisheries who had
experience in public works projects, as well as personnel newly hired by MOE for a term of three years.
Among them were many people who were evacuated and living life under evacuation, those who had
previous local employment related to nuclear power but had lost their jobs, or people from distant places
such as Kyushu and the local area who wanted to serve for reconstruction. I believe their motivation was
generally high. Meanwhile, this was also the first time to do this kind of work in Japan, so the value ofexperience and rules were not yet clear, and we had to improvise as we went along.
Regarding the initial decontamination plans, there was a shared understanding that decontamination
work should be started as quickly as possible because of the idea that wide-area decontamination shouldbe performed within about two years. This came from the aim of having evacuees being able to return
within three years of the disaster to Preparation Areas for Lifting of Evacuation Orders and Habitation
Restricted Areas. That reflected appeals from leaders in evacuation areas based on prior experience withthe evacuation of the Oshima Islands who knew that evacuees’ willingness to return will decline if
evacuation lasts for more than three years.
Although decontamination work was carried out in accordance with the rules of public works in Japan,
the methods such as productivity, quantification methods and process controls were not well developed
and were not clear. It is a so-called “large-scale cleaning” that eliminates invisible radiation source.
Despite the availability of Decontamination Guidelines, decontamination work on site had to be
implemented in a trial and error manner. MOE personnel who faced many challenges gradually solved
the problems with the cooperation of personnel from Fukushima Prefecture.
MOE personnel gradually felt confidence and made rules by their own. Meanwhile, we must not forgetthat they had to face the anger and criticism of evacuees living away from their devastated communities,
and the administrative agencies, as well as the frustration of residents who were being expected toprovide space for Temporary Storage Sites even though the decontamination work was supposedly amatter for the national government.
Although the decontamination work started in Tamura City, where the preparation was set at first, thepersonnel from other municipalities also joined the decontamination work and learned how the work
should be implemented as on-the-job training. .
Perhaps the national government could have done more to document the innovations andimprovements occurring on the ground and to apply them broadly at other municipal decontamination78

sites. However, in the context of a small number of people being overwhelmed with the day-to-day efforts
and continually attempting new methods and improvements, it appears to have been extremely difficultin practice to solidify and transfer what was being learned. Nevertheless, it was fortunate that suchknowledge was indeed shared and spread by the decontamination contractors and the Society for
Remediation of Radioactive Contamination in Environment.
The staff who worked for decontamination work directly in Fukushima did not only explain thedecontamination to the local residents , but also had to address various problems such as compensation,
treatment of residue, contamination from radioactive materials, and so on .However, they could not
address the all the questions because besides decontamination matters, not all the information was sharedwith them. From my point of view, the staffs in local government and those in central government could
not share consciousness about what is the problem in affected areas. From this, it should be rememberedthat there was considerable stress among personnel. On the other hand, however, the point wasappreciated that the authority to the Fukushima Office for Environmental Restoration was granted in the“Decontamination Promotion Package” (see 1.4.2).

Column“To promote decontamination in the northern part of Hamadori”
Hamadori Kita Branch, Fukushima Regional Environmental Office

Fukushima Regional Environmental Office Hamadori Kita Branch
The Hamadori North Branch office of the Fukushima Office for Environmental Restoration (as namedat the time) was established in Minamisoma City in April 2013 in order to provide support for municipal
decontamination of Soma City, Minamisoma City and Shinchi Town, in addition to decontamination andwaste disposal directly done by the national government in Minamisoma City and Namie Town. Initially,
it was established with 19 people, but nearly half of the staff were from the local area and they werevictims themselves from the earthquakes and tsunami damage. Initially it was difficult to secure staff
housing in Minamisoma City so some people stayed in hotels, but some had trouble when the hotelbecame full the next month. If the residence was not secured, some of them had to commute over an hour
and a half from Fukushima City until November 2013, when a government-owned apartment was
secured.
Under these circumstances, the office was responsible for information briefings for local residents
towards the start of decontamination, etc., with coordination with local governments, and meetings withconstruction contractors, but this was the first such work for MOE, so we were forced to proceed throughtrial and error. Although the residents sometimes showed distrust in the national government and anxiety
about radiation doses, the personnel in Hamadori explained consistently about the acquisition of
Temporary Storage Sites, acquisition of consent for decontamination, and waste disposal, etc. Suchefforts were gradually understood by local residents and the work also got on track, so the evacuation
order was lifted in Minamisoma City in July 2016 and in Namie Town in March 2017. In the future, in
addition to supplemental decontamination work, the office will make efforts to eliminate the Temporary
Storage Sites and decontaminate in Specified Reconstruction and Revitalization Base (SRRB) in Areas
where Returning is Difficult.

79Local Government

Fukushima Prefecture set up an environmental recovery team in the Nuclear Safety Division of Disaster
Countermeasures Headquarters on June 1, 2011 in order to start examination for environmental restorationfrom the nuclear disaster, and four people including an environmental coexistence section manager wereassigned here. Then on October 13, 2011, Senior Policy Administrator of Environmental Recovery Sector
and Decontamination Countermeasure Division was established in the Social Affairs and Environment
Department. The division managed decontamination implemented by municipalities based on
decontamination implementation plans, comprehensive support for dose reduction activities implemented
by municipalities, decontamination of prefectural management facilities, etc. (ordering and work
management was done by prefectural departments and divisions responsible for facilities management).
It also was engaged in the establishment of standards relating to design and quantification, support forquantification work, improvement of Technical Guidelines on Decontamination Operations and Temporary
Storage Sites, technical support for implementation of data verification of municipal decontamination
techniques, and managing Decontamination Countermeasure Business Grants relating to decontamination
implemented by municipalities.
After October 2011, Fukushima Prefecture held decontamination work seminars for decontamination
workers, field supervisors, and business managers, for the training of decontamination contractors andfield managers.
Furthermore, to promote understanding of residents the Prefecture dispatched experts, etc., to residents’meetings, etc., and conducted decontamination information visualization projects and information
dissemination through the Decontamination Information Plaza (currently the Environmental Restoration
Plaza) which was under joint management with MOE.

Municipalities in Special Decontamination Areas (SDA)
In municipalities in Special Decontamination Areas, not only residents but also local officials had toevacuate from the areas. Under these circumstances, the local officials responded to the consultation withresidents about the decontamination work. They also cooperated in arranging meetings between local
residents and MOE about the schedule of decontamination work. In obtaining the consent fordecontamination, they also cooperated to secure the TSS with land owners and district managers.
Even during decontamination, in addition to responding to inquiries from residents, in coordination with
MOE, etc., local officials also provided information such as the progress of decontamination andmonitoring results of radioactive substances by website.
They set up reconstruction measures divisions, etc., to coordinate adjustment for lifting of evacuation
orders, to formulate plans for reconstruction work, to help hold decontamination verification committee
meetings for each municipality, and to explain decontamination results to the residents.

80Municipalities in Intensive Contamination Survey Areas (ICSA)
In municipalities in Intensive Contamination Survey Areas (ICSA), decontamination was implemented
according to decontamination implementation plans formulated by municipalities. Municipalities that
implemented decontamination conducted measurements of the air dose rate, held residents‘ meetings,
obtained consent for decontamination and Temporary Storage Sites, ordered decontamination work andconducted process control.
In each municipality, many departments related to radioactive contamination and decontamination
projects were set up and operations were carried out in many cases. For example, some municipalities
established a Radiation Comprehensive Measures Division and a Decontamination Control Division. Also,radiation experts were appointed as advisors in some municipalities.
However, since countermeasures against radioactive contamination, health care, damages, anddecontamination required a lot of workers for municipalities in Fukushima Prefecture, which were also
suffering from the earthquake and tsunami, those works became major burden. For this reason, in somecases, the municipalities received assistance from dispatched staff from other prefectures or employedtemporary staff by subsidized projects.

Research Institutions

The National Institute for Environmental Studies (hereinafter referred to as NIES) from immediately
after the disaster tackled on the research for disposal of waste such as residue and waste contaminated withradioactive materials, and treatment and disposal of radioactive materials. It also worked for disasterenvironmental research, such as environmental dynamics, impact on living organisms and ecosystems,
environmental changes and impacts due to earthquakes and tsunamis, rebuilding community development
in disaster areas and creating a local environment, and technical standards and guidelines in the Act on
Special Measures concerning the Handling of Environment Pollution by Radioactive Materials. Thismeans that NIES played a leading role for the research and development in academia and industry.
Especially, NIES set up three programs (Environmental Recovery Research, Environmental Renovation
Research, and Environmental Emergency Management Research ) to research environmental damage
caused by the Great East Japan Earthquake, environmental pollution caused by radioactive substances
released into the environment, the impacts of the pollution on the health of living things and humans,
technology for removing pollution, technology for treating polluted waste, and technology forreconstruction. Environmental Recovery Research is aimed at establishing technologies and systems fortreatment and disposal of waste contaminated with radioactive substances (research on contaminatedwaste), and elucidating environmental dynamics of radioactive substances, evaluating exposure doses, andassessing the impacts on living organisms and ecosystems (research on multimedia environments). Also,
Environmental Renovation Research is investigating and researching the restoration and creation, etc., ofthe local environment after the disaster, while Environmental Emergency Management Research isinvestigating and researching building environmental management systems for future disasters.
Since 2016, NIES has established a branch office in the Fukushima Prefectural Centre for Environmental
81

Creation in Miharu Town, Fukushima Prefecture and is continuing research in the affected areas.

National Research and Development Corporation Japan Atomic Energy Agency
The Japan Atomic Energy Agency (JAEA), as a core agency for research and development related todealing with the TEPCO Fukushima Daiichi Nuclear Power Station accident, formed a Fukushima R&D
Division, and established the Fukushima Research Base Creation Center and Collaborative Laboratories
for Advanced Decommissioning Science (CLADS) to conduct R&D for reactor decommissioning, as wellas the Fukushima Environmental Safety Center to conduct R&D related to environmental restoration for
the reconstruction and restoration of Fukushima.
At the Fukushima Environmental Safety Center, from the time immediately after the accident, JAEA
conducted a survey on the distribution of radioactive substances, development of decontamination
guideline project, decontamination model projects, decontamination technology demonstration projects,
radiation measurement technology development, prediction technology development of decontamination
impacts, radioactive cesium environmental dynamics survey, removal of soil, and other technologies forrecycling, etc.
JAEA also cooperated with and supported national and local governments such as cooperation andsupport for decontamination carried out by MOE and municipalities, communication activities and humanresource development activities, and measurements using whole body counters.
The Fukushima Environmental Safety Center is located in the Centre for Environmental Creation(Miharu Town) run by Fukushima Prefecture and the Environmental Radiation Center (Minamisoma City),
and is conducting research using facilities jointly with Fukushima Prefecture and the NIES.

In February 2012, the Fukushima Prefecture established a Basic Concept Review Committee for an
Environmental Creation Strategy to promote environmental restoration from nuclear disasters, and tocreate an environment where the prefecture can live safely in the future. Fukushima Prefecture, JAEA, andthe NIES closely cooperated with each other to study the establishment of a base facility “Centre forEnvironmental Creation” to tackle the recovery and creation of the environment that was polluted byradioactive materials.
The functions of the Centre for Environmental Creation are to develop four centers in Miharu Town andMinamisoma City in the prefecture, with (1) monitoring, (2) research, (3) information gathering anddissemination, and (4) education, training and exchange. In July, the Centre opened, including attachedfacilities in Otama Village and Inawashiro Town.
JAEA and NIES are conducting research in four fields: (1) radiation measurement, (2) decontamination
and waste, (3) environmental dynamics, and (4) environment creation. Research results are used formaking policies related to decontamination work as and sharing the results with the public by web site andacademic societies, etc.
In addition, “Commutan Fukushima” was established as a facility to spread correct information about82the nuclear disaster and Fukushima Prefecture’s story, the current situation and radiation, and to support
children’s learning activities.

Overview of the Centre for Environmental
Creation (above) and the relationship between
four projects of the Center for Environmental
Creation (left)
Figure 3-12 Fukushima Prefectural Centre for Environmental Creation

Fukushima Prefecture, in order to promote unprecedented efforts such as the recovery of theenvironment from nuclear disasters and the realization of creation, it is necessary to combine the wisdomof the world and to deal with it. The Governor of Fukushima Prefecture delivered a request to Yukiya
Amano, Director-General, International Atomic Energy Agency (IAEA), saying that he would like toinvite international institutions to Fukushima, when IAEA mission came to Fukushima in December
2011. After that, through the coordination of the Ministry of Foreign Affairs with IAEA in August 2012,
the governor visited the IAEA headquarters in Vienna and reached the agreement with Mr. Amano about
cooperation projects in the field of decontamination and health management.
At the Ministerial Conference on Nuclear Safety held in December 2012 in Koriyama City
(Fukushima), the Governor of Fukushima Prefecture and Mr. Amano, Secretary–General of IAEA
announced that they had signed a memorandum of understanding collaborative activities with a priority
on radiation monitoring, decontamination and human health.
Based on the MOU, Fukushima Prefecture and the IAEA after repeated discussions created two
projects: Fukushima Prefecture Cooperation Projects (FCP) led by IAEA, and Fukushima Prefecture
Initiative Projects (FIP) led by Fukushima Prefecture. The two projects started in December 2012.

83

Table 3-6 Project contents of FCP and FIP

ＦＩＰ

ＦＣＰ
① Decontamination in Fukushima① Survey of radionuclide movement in river systems○ 福島における除染Dispatch IAEA team of IAEA and international experts to①
providetechnical advice.
○ 技術的アドバイスのためＩＡＥＡ及び国際的な専門家から構成○ Holdlocal workshops to provide support relating to
されるＩＡＥＡミッションを派遣する。
environmental
monitoring, exposure pathway studies, potential○ 地元におけるワークショップの開催を通じた、環境モニタリン
to reduce or avoid exposure, radiation safety for daily life, andグ、被ばく経路調査、被ばくを低減させ又は回避する可能性、
return of residents, etc.
日常生活のための放射線安全、住民の帰還等に関する支援② を行う。
Management of radioactive waste generated from①
○ 河川等における放射性核種の動態調査
Measure radioactive cesium concentrations in river water andsuspendedmatter to determine concentration distribution, and use○ 河川水や懸濁物質に含まれる放射性セシウム濃度を測定し、numerical
model simulation to predict/verify contaminant migration.
濃度分布の把握と数値モデルによる移動の予測や検証を行う。

②○ 除染活動から生じた放射性廃棄物の管理
Dispatch an IAEA team consisting of IAEA andinternational
experts to provide technical advice.
○ 技術的アドバイスのためＩＡＥＡ及び国際的な専門家から構成○ されるＩＡＥＡミッションを派遣する。
Through interactions with the relevant local andgovernmentalorganizations, provide support relating to the○ 地元及び政府の関係機関との意見交換を通じた、放射性廃
storageof radioactive waste, treatment of radioactive waste,
棄物の保管、放射性廃棄物の処理、放射性廃棄物を取り扱う
radiation
exposure when handling radioactive waste, etc.
際の放射線被ばく等に関する支援を行う。

③○ 河川・湖沼等における放射性物質対策
Consider effective measures to deal with radioactive materials in○ 福島県内の河川・湖沼等における放射性物質の環境動態に
Fukushima
Prefecture rivers and lakes, by collecting and summarizing
knowledge
on radioactive materials, through field surveys and literature
関する知見及び国内外の現地調査・文献調査等を通じた放射
surveysin Japan and overseas, as well as knowledge on their性物質対策に関する知見を収集・整理した上で、河川・湖沼等
environmental dynamics.
に関する効果的な放射性物質対策を検討する。

③ Use of environmental mapping technology for data from③
無人航空機（ＵＡＶ）による環境マッピング技術の活用
unmanned
aerial vehicles (UAVs)○ Develop
福島におけるモニタリングに使用するため、ＵＡＶに搭載した○prototype of mobile gamma ray spectroscopy
可動型ガンマ線分光システムのプロトタイプを開発する。
systemto mount on UAVs for monitoring in Fukushima.
○ Hold専門家会合を開催しフィールドテストを実施する。研修及び技○
expert meetings and conduct field tests. Provide
training
and technical support.
術的支援を実施する。

④【終了】ＧＰＳ歩行サーベイによる環境マッピング技術の開発
using GPS walking surveys○
data analysis and mapping visualization methods, etc., for○ Study
無人航空機サーベイに併せて実施するＧＰＳ歩行サーベイにGPSついて、データの解析方法、マッピングによる可視化の方法等
walking surveys in conjunction with unmanned aerial surveys.
⑤ について検討する。
Study of the proper treatment of waste containing radioactive② Survey of radionuclide movement with wildlife②○ 野生動物における放射性核種の動態調査
Measure radionuclide concentrations in muscle tissue, stomach○ イノシシをはじめとした野生動物の筋肉組織、胃内容物等のcontents,
etc., of wild boar and other wildlife, and conduct behavioral
studies,
including wildlife feeding habits, to determine radionuclide
放射性核種濃度測定や、野生動物の食性を含む行動調査を
dynamics
in wild animals.
実施し、野生動物における放射性核種の挙動を把握する。

decontamination activities③ Countermeasures for radioactive materials in rivers and lakes④ (Completed) Development of environmental mapping technology

materials at municipal solid waste incinerators⑤○ 一般廃棄物焼却施設における放射性物質を含む廃棄物の適正
Determine the relationship between combustion conditions andvariationsin the migration of radioactive materials to bottom ash and fly
な処理の検討ash,
modifying combustion temperatures and other conditions in○ by
焼却施設の燃焼温度等の燃焼条件を変化させ、燃え殻や飛incineration facilities and measuring radionuclide concentrations in
灰の放射性核種濃度を測定し、燃焼条件と燃え殻・飛灰へのbottomash and fly ash.
放射性物質の移行変化の関係を把握する。
○ Investigate
the leaching characteristics of radioactive cesium fromincineration
residue (bottom ash, fly ash), consider methods to remove○ 焼却残渣（燃え殻・飛灰）からの放射性セシウムの溶出特性
or reduceleachingof radioactive cesium from incineration residue.
を調査し、焼却残渣から放射性セシウムを除去又は難溶化する方法を検討する。
⑥ Studyof simple and rapid analytical methods for radionuclides④ 森林における放射性物質の長期モニタリングとその対策及び分Long-term monitoring of radioactive material in forests and④
associatedcountermeasures, plus support for radiation
かりやすいマップ作成のための放射線モニタリング・データ活用上
monitoring
to develop understandable maps, and dataの支援
utilization○ 技術的アドバイスのため、ＩＡＥＡ及び国際的な専門家から構○ Dispatch IAEA team consisting of IAEA and international
成されるＩＡＥＡミッションを派遣する。
experts
to provide technical advice.

○ Study methods for efficiently concentrating and measuring tritium in⑤⑤ 放射線安全及びモニタリング・プロジェクトの管理支援
Radiation safety and monitoring, plus project management○ 福島とＩＡＥＡとの協力プロジェクトを調整するため、福島におsupport○ けるＩＡＥＡの連絡役として、ＩＡＥＡ専門家を任命し、必要に応じAppoint IAEA experts as IAEA liaison persons inFukushima
to coordinate cooperation projects betweenて技術的アドバイスを提供する。

⑥
放射性核種の簡易・迅速な分析法の検討
watersamples, and separating and measuring organically bound tritium.
○
simple and quick methods for separating and measuring○ Study
水試料中のトリチウムを効率的に濃縮・測定する方法、有機
strontium-90
in the environment
的に結合したトリチウムを分離・測定する方法を検討する。
○ 環境中のストロンチウム-90を簡易・迅速に分離・測定する方法を検討する。

Fukushima and the IAEA and provide technical advice as
required.

(①
to ③ signed April 10, 2013, ④ and ⑤ signed October 30, 2013, ④（①～③平成25年4月10日締結、④及び⑤平成25年10月30日締結、completedin FY2016, and ⑥ signed on October 25, 2016.)④平成28年度で終了、⑥平成28年10月25日締結）（平成24年12月15日締結）(SignedDecember 15, 2012)

Fukushima University started measuring the air dose rate immediately after the accident, and created amap. In April 2011, “Utsukushima Fukushima Future Support Center” was established in order tosystematically work on reconstruction and support of Fukushima, and in July 2013, the “Environment
Radioactivity Research Institute” was established, and research began on the dynamics study ofradionuclides in the environment and the impact on ecosystems, etc. In order to contribute to academic,
scientific and technological promotion and regional development, JAEA has a comprehensive
collaboration agreement on research and human resource development, and cooperation research such as
collaborative research on decontamination and exchange of human resources training, and joint researchis being done with use of research facilities and equipment owned by both parties.

84

Decontamination Contractors and Relevant Institutions

The works for decontamination are similar to large-scale civil engineering projects, and need a lot of
workers. So construction contractors with know-how and experiences of large-scale constructions
implemented decontamination work. In the decontamination work, the contractors carried out the
preparation of decontamination plans, decontamination work, installation of Temporary Storage Sites,
transportation of removed soil, and so on. They also disseminated information on the status ofdecontamination, participated in local meetings, held on-site tours for local residents, patrolled local areas,and so on.
Consultants were also involved in decontamination work, such as acquiring consent from residents fordecontamination, conducing monitoring surveys of radiation, making guidelines, examining
decontamination methods, and supporting on-site management. They checked and reviewed the technicalmethods and conducted data analysis at every stage of the decontamination work.

In May 2011, the Japan Atomic Energy Society launched a “cleanup subcommittee” in order to actively
cooperate with the recovery activities of environmental pollution by radioactive substances. In November
2011 “The Society for Remediation of Radioactive Contamination in Environment” was established andthe “Decontamination and Waste Technology Council” by the industry was also established. The council
played an important role for sharing technical knowledge.
Public benefit corporation The Japan Society of Civil Engineers established the “Civil Engineering
Specific Theme Committee for Radioactive Contaminated Waste Countermeasures” in the “East Japan
Great Earthquake Special Committee” and began full-scale activities from the beginning of 2012.
The Japan Construction Federation Association established the decontamination committee (currently
the Interim Storage and Decontamination Subcommittee) under the Special Committee on Electricity
Countermeasures in April 2012. Construction companies have prepared systems to cooperate in
implementing the decontamination work.

In order to ensure the safety and security of the area, the police dispatched special regional police units
to the affected prefecture from March 18, 2011 to conduct various activities by uniformed police officers
and police cars to promote security.
Also, at the Committee to Promote Proper Decontamination, MOE prepared an “Action Plan for
Improving the Reliability of Decontamination and Contribution to the Region.” MOE also held special
lectures about the countermeasures for organized crime with Fukushima prefectural police, and about the
management of decontamination workers with the Fukushima Labor Bureau.

Decontamination work could only succeed with the cooperation of local residents. In particular,85

concerning consent for decontamination and securing Temporary Storage Sites, MOE received greatcooperation from residents.
Regarding consent for decontamination, MOE cooperated with concerned people such as landowners
and building owners for on-site surveys, consent on decontamination work, on-site observation, and so on.
In particular, in the Special Decontamination Areas, MOE asked landowners to come all the way to theirhouse from the areas where they were evacuated and check how the decontamination was implemented.
When the decontamination started, it was necessary to secure Temporary Storage Sites for removed soil.
In securing Temporary Storage Sites, MOE got support from the district leaders, landowners and people
from the surrounding areas. Especially, MOE expressed sincere appreciation to the district leaders, who
consolidated the opinions of residents and coordinated with local governments.
As part of efforts by local residents to cooperate, in Date City, for example, after receiving residents at
21 evacuation centers, support systems used by prefectural officials, city officials and volunteers to manage
the centers were reviewed. As a result local leaders took care of the management of the centers. Also, afterJune 2011, security patrols of vacant houses were reinforced with the cooperation of Date City Police,
Fukushima prefectural police headquarters and local police-related organizations.
In municipalities in evacuation areas, in addition to the patrols for vacant houses, decontamination work
areas and Temporary Storage Sites were also patrolled.

Column“Promote decontamination to advance reconstruction of Odaka-ku”
Mr. Masayuki Yamagishi, Former Chairman of the Administrative District of the Odaka
Western Region, former General manager, Otawa District, Minamisoma City

Q : When the decontamination work started in Otawa District, you were the general manager of the
district. How did you feel when the decontamination project started?
A : The TEPCO Fukushima Daiichi Nuclear Power Station Accident was very painful for us. At thattime, 31 families used to live here, but they evacuated to places apart. If decontamination work was notadvanced and the evacuation order was not lifted, the regeneration of the district would not go on. For
the regeneration, I felt it was crucial to secure the Temporary Storage Sites
Q : Please tell me about how did you coordinate to secure the Temporary Storage Sites with Minamisoma
City, MOE and local residents when the decontamination started?
A : In the spring of 2012, there was a plan to combine two temporary sites in the western part of Odakaku. However, it did not go well, so in November 2012, Minamisoma City expressed the policy to set upa Temporary Storage Site in every administrative district with high dose rate. Then I decided to set up a
Temporary Storage Site of Otawa administrative district in the site as the municipality proposed. In early
December the explanation meeting was supposed to be held in the district so I talked with about ten
landowners individually in advance and got consent of installation. At that time, MOE said that the sitewould be returned to the landowners in three years, but I did not think that would be possible. Instead, I86

told the landowners that the lands they leased would be returned in five years.
In early December, the meeting to explain about the TSS was held. Although half of the participants
agreed the plan for the installation of TSS, 10% of the participants were against the plan, so no decision
was reached. So I said to the participants, “If you don’t participate in the next meeting, I think you willagree the plan.” Since a few residents joined the next meeting at the end of December, I thought many
residents agreed to the plan and the decision was made.
I went to Odaka-ku office in January 2013, reported that the residents and landowners agreed to establish
temporary sites, and MOE started the project.
Q : In Minamisoma City, the Temporary Storage Site in the Otawa district became the first one, After
that, the installation of TSS proceeded smoothly in other administrative districts in the western part of
Odaka-ku, but are there any other difficulties?
A : At the time, I was also chairman of the Odaka western district administrative district .While in 5 of
the 12 Odaka Western Region administrative districts, each district has its own TSS, in other districts,
the City asked the residents to consolidate the Temporary Storage Site in one or two places. Also, Odaka
Chubu district was located in the center of the old Odaka-ku, so it is difficult to install Temporary Storage
Site in the district. So the City asked me whether the residents and I would receive the wastes from other
districts or not. Regarding this, a formal request was also issued by the chairman of the administrative
district of Odaka Chubu in June 2013.
Meanwhile, there was a huge hurdle to accept waste from other administrative districts. I talked to therelated district leaders again and again and asked them to accept the wastes from other districts. FinallyI decided to accept them in seven western districts of Odaka-ku and the central part of Odaka-ku in Oya
temporary storage site. That was a difficult time.
Q : As decontamination progressed, improper decontamination occurred in Minamisoma City. How did
you feel about the overall decontamination work at that time?
A : As the decontamination went on, various troubles occurred. However, such troubles can happen
anywhere at school or at a company. Rather, I was pleased that thousands of decontamination workers
gathered from all over the country and implemented decontamination quickly. I am grateful to them fortheir hard work.

Since there are many natural disasters in Japan, the response to large disasters has always proceededwith the help of local residents to assist evacuees, to prevent damage, and in the recovery, etc. In thisdecontamination work, there were also a lot of residents’ understanding and cooperation.
Initially some decontamination was done voluntarily by parent-teacher associations (PTA) and local

87

community groups around schools due to concern about health impacts of radiation on children. For
example, in Date City, the demonstration test of decontamination at elementary school by Date City
Decontamination Project Team was carried out in July 2011. In this demonstration, local residents andvolunteers participated by the call of PTA. The experts such as JAEA and Radiation Safety Forum (NPO)also joined the demonstration work.
Voluntary decontamination by PTA and neighborhood association was carried out in many areas.
Fukushima Prefecture financially supported these activities. In July 2011, Fukushima Prefecture also
issued the “Guidance on measures to reduce radiation dose in living space” which summarized the details
necessary for decontamination activities in living spaces.
The voluntary decontamination by residents was carried out in various parks and school roads until
around the year of 2014, before the start of decontamination by contractors. Many people implemented
decontamination of their houses by themselves.
Such voluntary decontamination for reducing doses showed great results especially in the early days,
but declined as decontamination work became in full-scale. After that, however, cooperation between
municipalities and residents, still went on such as in selection of Temporary Storage Sites, management ofremoved soil, surveillance, monitoring, etc. Decontamination was a major project cooperating withnational government, prefectures, municipalities, residents, related nuclear power companies, and others.

As a party to TEPCO Fukushima Daiichi Nuclear Power Station accident, from June 2011, TEPCO
conducted radiation measurement to ascertain the spread of contamination and monitoring in detail, forformulating decontamination implementation plans and so on. Thereafter, in January 2012, the Act on
Special Measures concerning the Handling of Environment Pollution by Radioactive Materials came into
force, and TEPCO has been responsible for cooperating with decontamination implemented by the nationalor local governments. MOE commissioned about 650 TEPCO workers (as of November 2017) as “Staff
for promoting decontamination activities.”
They stayed in Fukushima City from March 2012 and helped monitoring radiation making
decontamination implementation plans, implementing on-site management and radiation management, andoperating screening points based on the requests from the national and local governments. On January 1,
2013, “Fukushima Revitalization Headquarters” was established in the facility of J Village and“Decontamination Promotion Office” was based in Fukushima City centered on personnel with radiation
knowledge. Cooperation has been made to various requests relating to decontamination implemented by
the national government and local governments, with staffing ranging from the initial 140 persons to 300
persons at the peak.
Regarding whole area decontamination of Special Decontamination Area (SDA), based on requests
from the national government, the commissioned workers supported activities from the planning stage tothe practical stage in various ways such as pilot decontamination and quality control, and so on. As
decontamination progressed, for lifting evacuation orders, they considered policies and investigatedadditional measures to reduce the air dose rates, made the investigation plan for each house regarding
supplemental decontamination. They also cooperated in monitoring for restarting infrastructure such as
88the Joban Expressway and JR Joban Line.
In Intensive Contamination Survey Areas (ICSA), in response to the requests of local governments, they
supported a wide range of activities, such as developing decontamination implementation plans,conducting verification tests on effective decontamination methods, confirmation of effectiveness, holding
training sessions on decontamination for workers and work supervisors, surveying to determine thenecessary decontamination ranges, and they made efforts to implement appropriate and prompt
decontamination. In some facilities, they implemented simplified measures to deal with radiation. In thecase of local governments’ requests, they monitored local events and school roads even after
decontamination. The manpower and technical support to the ICSA were provided in almost all areas in
the prefecture.
Other electric power companies all over Japan also conducted monitoring of schools based on therequest of the national government in 2011. In April 2012, TEPCO sent “decontamination experts” tosupport decontamination activities in Fukushima Prefecture. TEPCO dispatched them to decontamination
activities conducted by the local government and residents in Fukushima Prefecture and also responded torequests for dispatch from the “Decontamination Information Plaza” (currently the Environmental
Regeneration Plaza)..

（people / day）

（Ten thousand people / day）
Special Decontamination Areas
Intensive Contamination Survey Area
Cumulative number of people (total person days)

Figure 3-13 Number of people assisted by TEPCO for measures by national and local governments

89Column“ Inauguration of The Society for Remediation of Radioactive Contamination in
Environment (SRRCE)”

Mr. Masatoshi Morita, Committee Member.

The accident at the TEPCO Fukushima Daiichi Nuclear Power Station due to the Great East Japan
Earthquake on March 11, 2011, was an enormous accident that exceeded our imagination and caused
extensive environmental radioactive contamination. The realization that this contamination was a serious
environmental pollution problem over a long period of time and also a serious social problem led us toestablish the Society for Remediation of Radioactive Contamination in Environment on November 28,
2011.
For this radioactive contamination, researchers from isotope laboratories of universities throughout
the country, from nuclear power centers of local governments, and other persons involved in nuclear
power started pioneering research immediately after the accident. Meanwhile, for environmental
remediation, a comprehensive approach was needed, including an understanding of the pollution
situation as well as decontamination techniques and social engineering. Thus, this forum was establishedto enhance discussion among many experts.
Professor Keiichiro Fuwa became the first president of SRRCE. He had been involved in the analysis
of so-called "death ashes" (nuclear fallout) of atomic bomb experiments on the Bikini Atoll withProfessor Kenjiro Kimura from the University of Tokyo. SRRCE held its first meeting in Fukushima
City in May 2012. About 500 experts participated, 150 papers were submitted, and there were
enthusiastic discussions. In June of the same year, the Journal of SRRCE was first published as aperiodical. On the environmental side, since MOE has knowledge accumulation of decontamination
technology for heavy metal and risk assessment, and MOE is responsible for decontamination work,
SRRCE works closely with MOE and related organizations.
About 10 nuclear accidents have occurred in the world, including the Chernobyl accident in 1986.
Although there are voices desiring to completely shut down nuclear power stations for safety reasons,the energy from nuclear reactions vastly more than conventional energy, so one of the most important
issues is the safe use of nuclear energy. I hope that future scientists could tackle the safe control ofradioactive wastes, taking advantage of nuclear energy.

90Column“About TEPCO’s decontamination efforts”
Mr. Shoichi Muto, General manager of Decontamination Promotion Office ofFukushima Revitalization Headquarters, TEPCO Holdings, Incorporated.

We sincerely apologize for causing so much trouble and concerns due to the TEPCO Fukushima
Daiichi Nuclear Power Station Accident.
Our commitment to decontamination began with cooperation with environmental radiation
monitoring in 2011when the accident occurred. In January 2013, when Fukushima Revitalization
Headquarters were established, the “Decontamination Promotion Office” was established and preparedfor organizational support. About 350 people were engaged in Fukushima City, Koriyama City, Iwaki
City and Minamisoma City as of 2017.
Meanwhile, under the request from MOE for “Staff for promoting decontamination activities,” weare providing manpower and technical support for promotion and acceleration of decontamination
while hearing the requests from the national government and local governments. Regarding the costs ofdecontamination that the government requests us we are also dealing with carefully listening to thedetails about the content and we will continue to respond appropriately.
A wide range of decontamination work has a lot of inexperience for us as well. With little
knowledge, for the purpose that decontamination will be finished as soon and good as possible, wehave been cooperating on practical stage by developing technologies of measuring how todecontaminate, taking measures to reduce radiation exposure, maintaining the quality ofdecontamination work, and so on. While being involved in the huge decontamination work, I felt theseriousness of the accident. I often heard the thoughts of residents about fears and anxiety. And I also
saw that many people such as the national government, local governments, decontamination
contractors, and experts, sacrificed all comforts and devoted themselves to promotion of
decontamination and they sometimes faced difficult situations. I regret what they had to go through.
From immediately after the accident to now, I have been engaged in radiation contamination
problems in the environment. The cumulative total number of persons related to decontamination in ourorganization are 650. I think that what we could do was small compared to the scale of the problem.
Planned decontamination almost ended in 2016, so we reached one milestone, although I think thatnew issues will arise in addition to the remaining ones. There are various problems such as resident’s
mental and physical health, returning home, the economy, and environmental restoration, in addition tomatters associated with Areas where Returning is Difficult (ARD), Interim Storage Facility, waste
disposal and recycling.
I think it is more important than anything that our company will never let the past fade away. We
need to continue to pass on the baton over time. We will continue to do our best for Fukushima andsociety and to fulfill our responsibilities for Fukushima in the future.

91

3.3. Budgetary Measures
Budgetary Measures

The general reserve funds for FY2011 were the starting point for the budget for decontamination work
(hereinafter referred to as “decontamination budget”), and the third supplemental budget was establishedafter a Diet debate at the 179th extraordinary session of the Diet.
In FY2012, the Special Account for Reconstruction from the Great East Japan Earthquake wasestablished in order to improve the transparency of the flow of funds of the national government relating
to the recovery from the Great East Japan Earthquake and to appropriately manage the redemption ofreconstruction bonds. From then on, the decontamination budget was included as part of the “expenses
related to reconstruction from the nuclear disaster,” one of the eight pillars of this special account.
The cumulative decontamination budget totaled 3,253.2 billion yen by FY2017 (3,075.4 billion yen
excluding the unused funds each year), and expenditures amounted to 2,625 billion yen by end of FY2016(see Table 3-7 for budgetary measures and execution status for each year).
Also, in order to further accelerate reconstruction and restoration of Fukushima, on December 20, 2013,“For Accelerating the Reconstruction of Fukushima From the Nuclear Disaster” was adopted as a statement
by Cabinet Decision based on the proposals of a few ruling parties. As one direction for thedecontamination budget in order to clarify the division of roles between the government and TEPCO, itlisted seeking compensation from TEPCO after the project implementation, estimated total costs, andmethods of recovering the equivalent of decontamination costs, etc. Furthermore, in order to further
enhance recovery measures based on the fact that evacuation had been going on for a long period, at morethan five years and nine months since the disaster, “Basic Guidelines for Accelerating Fukushima
Reconstruction from Nuclear Disaster ” were adopted by Cabinet Decision on December 20, 2016, and theestimated amount of decontamination cost was increased to 4,200 billion yen (including 3,420 billion yen
for decontamination, excluding disposal of contaminated waste) due to factors such as tight supply anddemand in the disaster-affected areas (see Table 3-8 for breakdown of expenses).
In addition, the Act on Special Measures for the Reconstruction and Restoration of Fukushima wasrevised in May 2017 to address the reconstruction and rebuilding of Areas where Returning is Difficult as
quickly as possible. Budgetary measures of 30.9 billion yen were listed for FY2017, the initial year, forgovernment-funded work for decontamination and waste treatment necessary based on reconstruction andrevitalization plans for Zones Designated for Reconstruction and Recovery in each municipality (zones
that aim for lifting of evacuation orders and to enable residents to return).
Costs of measures taken under the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials are to be borne by TEPCO as stipulated in Article 44, Paragraph 1 of
the Act, and the national government is to seek compensation from TEPCO for expenditures required fordecontamination and other measures .
In accordance with Article 44, Paragraph 2 of the Act, when compensation is sought from TEPCO for
expenditures required for decontamination and other measures, TEPCO is required to make an effort topay promptly, and in order to enable prompt compensation and proper implementation, the Nuclear
92

Damage Compensation and Decommissioning Facilitation Corporation issues funds to TEPCO.
Table 3-7 Budget measures and execution status of decontamination work
(unit: hundred million JPY)Year
FY2011 reserved
FY2011 supplement
FY2012 initial
FY2013 initial
FY2013 supplement
FY2014 initial
FY2015 initial
FY2015 supplement
FY2016 initial
FY2016 supplement
FY2017 initial
Total

BudgetedNational
Government
157
949
2,678
2,949
4
1,188
2,414
66
2,920
1,392
1,618
16,335

Munucipalities

Total

1,922 2,080
1,047 1,997
1,043 3,721
2,029 4,978
800
804
1,394 2,582
1,760 4,174
717
783
2,330 5,250
1,915 3,307
1,237 2,856
16,194 32,532

National
Government
136
137
2,561
2,892
4
1,145
2,324
66
1,544
787
－
11,596

Expenditures(Final)Munucipalities

Total

1,922
858
1,012
1,996
800
1,356
1,748
717
2,329
1,915
－
14,653

2,058
994
3,573
4,889
804
2,502
4,072
783
3,873
2,702
－
26,250

Table 3-8 Breakdown of decontamination / contamination wastes disposal expenditures (JPY)
Contents
Decontamination
related○ Main decontamination costs (including supplemental
decontamination cost)(Details)○ Establishment and operation cost of Temporary Storage
Sites / volume reduction facilities○ Technology development expenses○ Public information expenses for mass media○ Model projects○Children’s environment restoration projects○ Supplemental monitoring○ Research costs○ Administrative costs
Contaminated wastes disposal related(Details)○ Designated waste treatment○ Agriculture and forestry waste (8,000 Bq / kg or less)○ Monitoring assistance for waste disposal facilities○ Waste disposal within local areas

Cabinet Office, etc. portion (decontamination, treatment of polluted waste)
Total

93

Estimated
December 2016
3,210 billion
2,180 billion
970 billion

60 billion

810 billion

220 billion
4,200 billion

Decontamination administered by the national government
For Special Decontamination Areas in Fukushima Prefecture, on January 1, 2012, the Fukushima Officefor Environmental Restoration was established (currently the Fukushima Regional Environmental Office)and the decontamination budget is being implemented there as work administered by the national
government, from procurement of decontamination work to contracts and work management.
For the decontamination of national government-owned property located within Intensive
Contamination Survey Areas (ICSA), the decontamination budget is being implemented directly under thejurisdiction of each ministry concerned.
Fiscal measures for local governments
Prefectures and municipalities are implementing fiscal measures on radiation dose reduction measures
implemented based on the Act on Special Measures concerning the Handling of Environment Pollution byRadioactive Materials in order to reduce the effects on human health or the living environment from thenuclear accident caused by the Great East Japan Earthquake. The MOE issues direct subsidies to local
governments; for municipalities designated as Intensive Contamination Survey Areas (ICSA) there are five
types of projects (decontamination implementation plan formulation, decontamination projects, dose
reduction community activity support projects, child’s living environment restoration projects associatedwith decontamination, and post decontamination monitoring projects), while for all municipalities there
are expert dispatch projects. For municipalities in Fukushima Prefecture, the Fukushima Prefecture
Citizens’ Health Management Fund established in Fukushima Prefecture is funded through subsidies from
MOE, and individual projects are under way funded by Decontamination Countermeasure Business Grantsthat Fukushima Prefecture provides to the municipalities.

Situation regarding Budget Implementation and Compliance with Claims for Compensation

The amount spent from FY2011 to FY2015 on three projects under the Act on Special Measuresconcerning the Handling of Environment Pollution by Radioactive Materials comes to about 1,822.7 billion
yen, of which expenses related to measures for decontamination, etc. of contaminated soil, etc., are 1,633.7
billion yen.
Expenditures for “Emergency decontamination implementation projects” implemented urgently starting
before the Act on Special Measures concerning the Handling of Environment Pollution by Radioactive
Materials entered into force were over 215.1 billion yen (including expenditures other than decontamination),while expenditures for “Radiation emergency reduction countermeasures projects, etc.” were over 20.9
billion yen.
The total expenditures of these projects related to measures to reduce radiation dose by decontaminationand other measures totaled more than 1,869.8 billion yen.

94

In addition to decontamination implemented as nuclear disaster-related expenses, local governments are
implementing improvement of topsoil as measures to reduce radiation doses. These are not subject tomeasures for decontamination, etc. based on the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials, so they are not eligible as supplemental projects, but are
implemented by local governments as their own projects. As a result, some of the project costs are subject tothe special allocation tax for earthquake disaster reconstruction.
The total amount of special allocation tax for earthquake disaster reconstruction related to measures toreduce radiation from FY2011 to FY2015 was about 5.4 billion yen for 138 cases in 7 prefectures.

Measures to be taken under the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials are to be implemented under the burden of Tokyo Electric Power
Company under the provisions of Article 44, Paragraph 1 of the Act, and the national government is to takemeasures for decontamination, etc., and make claims for compensation from TEPCO for the required
expenses. According to Article 35 of the same Act, in the Intensive Contamination Survey Areas (ICSA), thenational government is to implement measures for decontamination, etc., of the land within thedecontamination implementation areas and controlled by the national government, and not only the Ministryof the Environment, but also the Ministry of Justice, Ministry of Finance, Ministry of Education, Culture,
Sports, Science and Technology, and others are to take measures for decontamination, etc., and make claims
for compensation from TEPCO.
As for MOE, in February 28, 2018, it requested approximately 1,989.4 billion yen for expenses related tomeasures for decontamination, etc., and approximately 1,388.3 billion yen was accepted. The amount not
accepted has not been paid at the present time, due to reasons such as TEPCO requiring time to confirm
evidence documents.

953.4. Establishment of Decontamination Methods
Selection and Establishment of Decontamination Methods

In April 2011, Date City and Koriyama City began decontamination as soon as possible in school yards,
etc., and decontamination was carried out by removing topsoil and concentrating it in the ground andturning the soil over (deep plowing). This work was the decontamination of specific local facilities, andthere were differences in decontamination methods among municipalities.
Against this backdrop, the Japan Atomic Energy Society announced on August 12, 2011, that it had
translated the results of the EURANOS project conducted by the European Commission for the purposeof preparing for emergency situations involving radiation such as nuclear power accidents, the“Comprehensive Handbook for Residential Area Management,” with the title (in Japanese) as the“EURANOS Data Sheet.” It contains 59 decontamination technologies for the residential environment.
In addition, the Japan Atomic Energy Society announced the “Decontamination Technical Catalog” on
October 27, 2011, describing decontamination techniques based on the EURANOS Data Sheet, 64
technologies with the perspective of applicability to Japan (of which 27 are non-residential environmentand 20 are unique to Japan).
The Cabinet Office announced a “Decontamination Technical Catalog” on November 22, 2011 based on
the results of decontamination activities so far and the “EURANOS Data Sheet” and “Decontamination
Catalog” prepared by the Japan Atomic Energy Society. This catalog lists 23 decontamination techniques
for applicable for decontamination.
Regarding farmland, field trials were conducted from May 2011 mainly by the Ministry of Agriculture,
Forestry and Fisheries, and on September 30, 2011, “Publication of appropriate methods ofdecontamination of farmland” was compiled.
Meanwhile, the Cabinet Office commissioned JAEA to ascertain the decontamination effects in a
relatively wide range of areas including land uses, such as housing, roads, and vegetation, etc., so from
November 2011, it implemented “Decontamination Model Projects” and “Decontamination Technique
Demonstration Test Projects.” The MOE also implemented “Decontamination Technique Demonstration
Projects” starting from December 2011 to identify techniques that can be utilized for decontamination
work. Fukushima Prefecture as well, starting from November 2011, implemented “Fukushima Prefecture
Whole Area Decontamination Model Projects” for confirming decontamination techniques anddecontamination effects for whole area decontamination, as well as the “Fukushima Prefecture
Decontamination Technology Demonstration Project” for spreading efficient and effective methods.
The findings obtained by these projects were incorporated into the “Decontamination Guidelines”
prepared by MOE. In addition, knowledge based on experiences of the decontamination contractors wasappropriately fed back to the project, and on May 17, 2013, the “Collection of Good Practices in
Decontamination” was compiled by the Fukushima Office for Environmental Restoration of MOE anddistributed to decontamination contractors, and the decontamination related guidelines have subsequently
been revised and expanded.

96

Cabinet Office (JAEA) Model Demonstration Project
In response to the Basic Policy for Emergency Response on Decontamination Work, in November 2011,
the Cabinet Office commissioned JAEA to implement Decontamination Model Projects in order toestablish efficient and effective decontamination measures related to decontamination of soil and othermaterials (mainly targeting areas with high radiation doses where the additional annual radiation dose
exceeds 20 mSv/y), and policies to ensure safety measures relating to the radiation protection of workers.
Specifically, it was decided to select target zones of a certain land area in 11 municipalities (Tamura City,
Minamisoma City, Kawamata Town, Hirono Town, Naraha Town, Tomioka Town, Kawauchi Village,
Okuma Town, Namie Town, Katsurao Village, Iitate Village) within Restricted Areas and Deliberate
Evacuation Areas, test applicable decontamination methods and technologies, analyze the decontamination
effects, and utilize the findings to develop whole area decontamination implementation plans and conductdecontamination work.
These efforts found that decontamination could reduce the air dose rate to a considerable extent, but alsothat current decontamination technologies had limitations.
Besides decontamination techniques, the decontamination model projects provided much valuable
information, including the importance of monitoring to avoid overlooking hotspots, the importance of
preparing the work environment (obtaining water, materials for decontamination, etc.), the impact of winterweather on decontamination, effective measures to maintain the quality of large-scale decontamination
work, effective measures to prevent recontamination, the possibility of recontamination, and effective
measures to reduce waste, etc. The projects also highlighted residents’ concerns about decontamination
and

the

importanceofcaringfordecontamination workers.
Group /
Municipalities
A Minamisoma
City
Kawamata
Town
Namie Town
Iitate Village
B

C

Tamura City
Katsurao
Village
Tomioka
Town
Hirono Town
Okuma Town
Naraha Town
KawauchiVillage

IitateVillage

Target Areas
Around Kanabusa
Elementary School
Sakashita Area
Tsushima Area,
Gongendo Area
Kusano Area, Base point
etc.
Jikenjo Area

Hayashi Factory

Iitate Home Ichiban-kan

Deliberate Evacuation Areas

Minamisoma
City

Sakashita Area
Kawamata
Town

Tsushima Area

Namie
Town

Kanabusa Elementary School
Gongendo Area

Katsurao
VillageAround Village Office
Yonomori Park, Tomioka
Daini Junior High School
Chuodai / Nawashirogae
Area
Around Town Office
Ottozawa Area
Kamishigeoka Area
Minami Industrial Estate
Kainosaka Area

Katsurao Village Office
Ottozawa Area

Jikenjo Area
Okuma Town Office

Restricted Areas

KawauchiVillage

Tomioka Junior HighSchoolKainosaka Area
Kamishigeoka Area
Minami Industrial
EstateNote) Not conducted in Futaba Town.

Figure 3-14 Target area of model
demonstration project Source :MOE

Kusano Area
Kikuchi Factory

Chuodai/Nawashirogae
Area“Aboutthe transition of the air dose rate after the
Decontamination Model Projects” (August 4, 2017)

97

Okuma
Town
Yonomori Park
TomiokaTown
NarahaTown

Fukushima Prefecture Whole Area Decontamination Model ProjectIn Fukushima Prefecture, in order to verify the effect of radiation dose reduction effect of implementing
decontamination using decontamination methods indicated in “Guidelines for Municipal Decontamination
Work” (August 26, 2011 Nuclear Emergency Response Headquarters), the “Fukushima City Whole Area
Decontamination Model Project” was implemented for about 10 ha of the Onami district of Fukushima
City starting in November 2011.
As a result of comparing the rate of reduction of radiation doses for each decontamination method
indicated in the Guidelines for the entire human living area including regular houses, meeting places,
shrines, residential areas including elementary schools, farmland, forests, and roads, etc., it was found thatthe rate of reduction of radiation dose by dyeing (surface dose rate of the subject of decontamination)
greatly differs, from 0 to 80%, due to differences in subject and method. The rate of reduction of air dose
rate by whole area decontamination was 34%, so the effectiveness of whole area decontamination was
confirmed to reduce radiation doses throughout the region.
The findings were summarized regarding prior notification and explanations to residents, the amounts
and treatment of decontamination waste, safety management, and about impacts on public water bodies,etc., and as a reference for municipalities to proceed with whole area decontamination, the knowledge wasused in the preparation of “Technical Guidelines on Decontamination Operations” (January 2012), and a“Handbook for Whole Area Decontamination” (March 2012), etc.
Field trials on decontamination technology of agricultural soil (Ministry of Agriculture, Forestry
and Fisheries)
On farmland, field trials on decontamination techniques for agricultural soil were conducted in Iitate
Village and Kawamata Town, mainly by the Ministry of Agriculture, Forestry and Fisheries starting on
May 28, 2011, and on September 30, 2011 the findings were summarized in “Publication of appropriate
methods of decontamination of farmland.”After that, the Ministry of Agriculture, Forestry and Fisheries started a demonstration project for thedevelopment of decontamination techniques for farmland starting in February 2012, and from theverification at the work demonstration level, it carried out efforts toward practical application at the fieldlevel, and 2012 in February, the findings were summarized in the “Technical Document for
Decontamination of Farmland,” which summarizes features based on work method.

Commissioned by the Cabinet Office, JAEA implemented the “Decontamination Technology Field Trial
Project” from November 2011 to February 2012 to invite submissions and discover promising new
decontamination technologies that could be applicable, with the aim of evaluating effectiveness byconducting demonstration field trials.
The MOE conducted the “Decontamination Technology Demonstration Project” starting in December
2011 in order to discover technologies that can be utilized for decontamination work and to verify their98effectiveness in decontamination, as well as economic viability and safety, etc. An open call was made fordecontamination technologies, which were then reviewed by an expert committee, and field trials wereconducted on selected technology proposals. Demonstration projects have been conducted every year sincethen. In 2015 they were conducted under the title of “Decontamination and Volume Reduction Technology
Demonstration Project,” and since 2016 they have continued as the “Volume Reduction of DecontaminatedSoil Technology Demonstration Project.”Fukushima Prefecture as well has conducted the “Fukushima Prefecture Decontamination Technology
Demonstration Project” since November 2011 by making an open call for excellent decontamination
technologies and publishing the results of their effectiveness, for the purpose of spreading effective andefficient methods and promoting decontamination activities in all areas of the prefecture in the future.
Demonstration projects have been carried out every year since 2015 and are implemented at the Center for
Environment Creation.
During the period from 2011 to 2015, 67 decontamination technology demonstration projects were
implemented by MOE and 49 by Fukushima Prefecture. For decontamination technologies such as ultrahigh pressure water cleaning, cutting and topsoil stripping, as well as radiation measurement techniquesand volume reduction techniques, etc., efficient methods were demonstrated and adopted in the field.
Table 3-9 Decontamination Technology Demonstration Projects by MOE (1/2)
FY

MethodHigh-pressure
water washing
Extra highpressure
washing
Extra highpressure
washing, peelingoffClassification

2011
TopsoilCoagulation
precipitation
Dredging
Biomass power
generation,
ethanol
production

Features
High-pressure water washing, wastewatercollection, treatment, circulation
Adsorption / self-propelled type

Associated company
Fukushima Komatsu Forklift
Co., Ltd.
Muramoto Corporation.

Large-sized, medium-sized, compact ultrahigh pressure water cleaning device, coating
peeling off

Toden Engineering Co., Ltd.

Automation of wet classification, scrubbing
washing (wet type), concentration residue
treatment
Mixed jet pump, helical classifier (wet type)
Mixing pump, sieve type classification (wettype)
Disintegration / classification (dry type),
surface polishing (dry type)Surface dose measurement by optical fiber,
top soil stripping
Coagulation sedimentation (high speed)

Shimizu Corporation

Dredging equipment, centrifugal separation
classification (wet type)
Gasification and carbonization by pyrolysis,
utilization of generated gas
Ethanol production (herbaceous / woody
series)Phytoremediation, ethanol production(polysaccharide plants) · Gasification power
generation

99

Maezawa Industries, Inc.
Radwaste andDecommissioning Center
Fuji Furukawa Engineering& Construction Co. Ltd.
IHI Corporation
Mitsubishi Kakoki Kaisha,
Ltd.
Toyo Construction Co., Ltd.
TEKKEN Corporation
Contig-i Co., Ltd.
Japan Groundwork
Association

Washing
Solidification(superfluid
method)Washing
grinding
Grinding /classification
Extra highpressure
washing
Cutting
Topsoilincineration
Water treatment

2012

Konoike Construction Co.,Ltd.
Aizudoken Co., Ltd.

Special bits, thin layer cutting
Unmanned high altitude digging machine

NIPPO Corporation
Fukasawa Construction
Company Inc.
Tokyo Institute ofTechnology
GAIA Institute ofEnvironmental Technology
Inc.
Taisei Corporation
Shirakawa well Boring Co.,Ltd.
Toonokousan Corporation.

Solidification with water glass, iron FerrocyanideIon adsorption / filtration by functional
carbide (portable type)

Changing
Carbonization

Thin layer drift, thin layer covering sandCarbonization by superheated steam

Abolition

Fuelization of low temperature thermal
decomposition, non-contaminated fraction
Incineration / disinfection (portable type)by in-furnace air-cooled incineration
Water washing, surface contamination
density measurement of wood (log withlog)
Stabilization / extinction by incineration
ash melting
Solidification with composite synthetic
resin
Granulation of incinerated ash by cement,
washing after solidification
Utilization of concrete aggregate ofpolluted garret
Storage with multifunction embankment

incineration
Washing
Melting
Solidification /non-dissolution
Reuse
Other
Fluoride salt
Vacuumpressurization

2013

Pyrolysis (carbonization / gasification),burning charcoal
High-pressure water washing, wastewatercollection, treatment, circulation
Adsorption / self-propelled type
Solidification and volume reduction ofincinerator ash by solidifying agent andexternal vibration
Cs elution from fly ash, Cs adsorption inPrussian blue
Wet blast
Water solidification, grinding class (drytype)
Extra high pressure water / small amountof water wash, wastewater collection,
treatment, circulation (portable type)Classification
Crushing /suction /recoveryDrying /crushing
Monitoring by
unmanned

Cs capacity using fluoride salt at normal
temperature and normal pressure
Solidification using cement anddehydration abatement by vacuum
pressurization
Classification of bottom sediment in situ
Labor saving of green decontamination bycrushing and suction system
Drying of mixture of plant and soil,
classification after disruption
Creation of air dose rate map by ultra low
altitude measurement by unmanned
100

Toonokousan Corporation.
Hazama Corporation
Koriyama Chip Industry Co.,Ltd.
Macoho Co., Ltd.
Takasago ThermalEngineering Co., Ltd.
Shimizu Corporation

Shinsei Engineering Co.,Ltd.
Neonite Corporation
Kobe Steel, Ltd.
E & E Techno Service Co.,Ltd.
Obayashi Corporation
Toda Corporation
Asahi Kasei Geotech
Corporation
Swing Corporation
Maeda Construction
Aomi Construction Co., Ltd.
Fukushima Komatsu Forklift
Co., Ltd.
Obayashi Corporation
Chiba University

helicopter
Container unit
monitoring
Washing
Washing /magnetic
separation
Organic acidhelicopter and creation of vegetation / land
cover situation map by hyperspectral
technique
Simple measurement of radioactivity
concentration in container
High efficiency cleaning of Cs in
incineration ash
Recovery of Cs from incineration fly ash
using magnetic nanoparticles carrying
adsorbent
Decontamination of aluminum heatexchange crystals of vehicle by organic acid(main component)
Decontamination of recycled waste home
appliances made by sodium bicarbonate
blast

Toshiba Corporation
Fujita Corporation
Taisei Corporation
E&E Techno Service Co.,Ltd.
Chugai Technos Corporation

Table 3-9 Decontamination Technology Demonstration Projects by MOE (2/2)
FY

Demonstration theme
Decontamination of aluminum heat exchange crystals of
vehicle by organic acid (main component)
Decontamination of recycled waste home appliances made bysodium bicarbonate blast
Filter traveling type filter-Demonstration operation forradiation exposure reduction using breath
Experiment of washing contaminated soil with radioactive
materials and verification for reuse of soil after washing
Improvement of transportation efficiency and verification ofsafety and economic efficiency by demonstration of volume
reduction and stabilization of organic matter contaminated withradioactive materials by bio-coking and volume reduction
Safe treatment method of fishing nets left in the Areas under
Evacuation Orders by thermal cracking method: waste difficult
to process “
2014Demonstration of safe volume reduction processing system oftrapping harmful birds and beasts
Efficient construction technique of difficult-permeable soil
layer using local excavated soil by simple crushing method
Demonstration of mass transit management system utilizing
ETC wireless authentication technology related to transport ofremoved soil etc. in Fukushima prefecture
Application demonstration of non-contact, highly efficient,energy-saving water jet cutter to flexible container breakage
process at intermediate storage facility
Large unloading and bag breaking equipment that does not
require workers and technology for purifying rotting water in a
flexible container
Demonstration of concentration selection system for removed
soil
Removal of radioactive cesium contained in incineration ash byhydrothermal extraction method, volume reduction ofradioactive material, and demonstration of stabilization
Development of technology for decontamination and volume
reduction of contaminated soil fine granules using
2015 environment-friendly detergent and reuse of purified soil
Demonstration and validation of soil improvement, reduction of
volume by sieving, and promotion and reuse of agriculturalland recycling system enabling selection and removal of plants
contained in soil with high moisture content and high viscosity
Decontaminating Decontamination of Fine Granular Soil by
101

Associated company
E&E Techno Service Co.,Ltd.
Chugai Technos Corporation.
Ishigaki Company, Ltd.
Hitachi Kikai Ltd.
Chugai Ro Co., Ltd.

Nihon Plant Kensetsu
Corporation
Kyowa Kako Co., Ltd.
Taisei Corporation
Hanshin Expressway Co.,Ltd.
Shimizu Corporation
Obayashi Corporation
AREVA NC - Japan Co., Ltd.
Nagaoka University ofTechnology
Osaka University
Kajima Corporation

CDM Consulting Co., Ltd.

Quasi-Continuous Subcritical Hydrothermal Explosion
Treatment
Comparative verification of safety (exposure reduction / work
Hitachi Power Solutions Co.,
safety) of sand bag measurement using backhoe type radiationLtd.
measurement device, labor saving
Technique for measuring transportable radioactive
Obayashi Corporation
concentration at the time of transportation of removed soil etc.
and technology for suppressing generation of dust etc. at thetime of landfill
Demonstration of rapid measurement technique of air dose by
Kikuchiseisakusho Co., Ltd.
gamma ray visualization device from sky utilizing mini-serverTechnique for treatment of radioactive materials removal by
Kajima Environment
cross flow shredder Auxiliary project
Engineering Co., Ltd.
Decontamination, volume reduction and materialization
Mitsubishi Materials
technology by melting decontamination of metal waste
Corporation
contaminated with radioactive cesium
Source: Ministry of the Environment “Outline of FY2011 Decontamination Technology Demonstration
Projects” (August 2012): Ministry of the Environment “Outline of FY2012 Decontamination Technology Demonstration Projects”(May 2013): Ministry of the Environment “Outline of FY2013 Decontamination Technology Demonstration Projects”(December 2013): Ministry of the Environment “Outline of FY2014 Decontamination Technology Demonstration Projects”(January 2015): Ministry of the Environment “Outline of FY2015 Decontamination and Volume Reduction Demonstration
Projects” (January 2016)

Table 3-10 Decontamination Technology Demonstration Projects by Fukushima Prefecture
FY

2011

Outline of decontamination technique, etc.
Decontamination technology using special polymer materialHigh pressure cleaning and polluted water recovery
technology
Decontamination technology using special decontamination
opportunities
Decontamination technology related to pavement surface andside grooves such as public facilities and school roads (ND-S
system)Technology for decontamination of houses by dry ice blasting
and coating removers
Safety, security, effective floor decontamination technology
combining shot blasting, grinding machine and high pressure
water cleaning
Technology to manage waste etc. in decontamination using
moving images and GPS
Decontamination technology of turf grass etc. by engine
bloomers
Decontamination technology related to pavement surface andside grooves such as public facilities and school roads (ND-S
system)Technology for decontamination of houses by dry ice blasting
and coating removers
Safety, security, effective floor decontamination technology
combining shot blasting, grinding machine and high pressure
water cleaning
Technology to manage waste etc. in decontamination using
moving images and GPS
102

Associated company
EARTH
Fukushima Building
Maintenance Association
Kageyama Kensetsu
Shimizu Corporation / THE
NIPPON ROAD Co., Ltd. JV
Chiyoda Technol Corporation
Takenaka Corporation
Earth Design International
Inc.
Nishimaki Shokuen
Shimizu Corporation, THE
NIPPON ROAD Co., Ltd. JV
Chiyoda Technol Corporation
Takenaka Corporation
Earth Design International
Co., Ltd.

Decontamination technology of turf grass etc. by engine
bloomers
Decontamination method using coagulant for radioactive
substances (contaminated water purification technology suchas pool and irrigation pond)
Method for removing river water etc. using moth grass etc.
Polluted soil removal technology by information
communication technology construction
Removal soil removal method using special soil conditioner
Fine particle decontamination method and solidification
insolubilization technology of radioactive materials
contaminated soil
Soil decontamination technology using new high performanceflocculants
Purification and volume reduction technology by classificationand cleaning using scrubbing and flotation
Decontamination and volume reduction technology ofradioactive cesium contaminated soil using attrition
classification washing and high performance flotation together
Separation decontamination technique using high pressure
washer in soil containing crushed stone and gravel at the
housing site
Soil volume reduction technology using coagulant forradioactive materials
Decontamination by volatilizing radioactively contaminatedsoil, volume reduction technology
Decontamination of general houses by recycling recovery typeradioactive decontamination machines
Econ / polyion construction method

2012

Nishimaki Shokuen
Fukushima Construction
Association / Kumaken Co.,
Ltd. JV
Shoken Technology Co., Ltd.
Kageyama Kensetsu
Highclay
EARTH
Kawasaki Heavy Industries,
Ltd.
Shimizu Corporation
Nishimatsu Construction Co.,Ltd.
Yuichi Hirota
Fukushima Construction
Association / Kumaken Co.,
Ltd. JV
Sumitomo Mitsui
Construction Co., Ltd.
Aiwa Corp Co., Ltd.

Eco Bond Environmental
Engineering Research Co.,Ltd.
Decontamination by dry coating of zeolite-containing polymer Katsuri Inc.
aqueous solution
Sewage scattering zero / low pressure nano microscopic steam Shimizu Building Life Carecleaning method
Co., Ltd.
Washing with diluted hydrogen peroxide solution
Shoken Technology Co.,
Ltd.
Filler removal device in artificial turf field
Turf Cycle Co., Ltd.
Decontamination of road surface (asphalt) etc. by blasting
Toda Corporation, Sankyo
Kousan Co., Ltd.
Decontamination technology using nano bubble natural Binos Co., Ltd., Tokyo,
surfactant washing solution
Electric Power
Environmental Engineering
Co., Ltd., Hitachi-GE
Nuclear Energy Ltd.,
Obayashi Corporation
Technique for peeling contaminated soil in sheet form
A&A Material Corporation
In-vehicle type water treatment equipment
Tokyu Construction
Broad area contamination barrier system for agricultural water Maeda Corporation.
for the revitalization of the Fukushima brand
Information construction technique using radiation dose planar Sumitomo Mitsui
distribution measurement system
Construction Co., Ltd.
Ares RXP reset coating peeling type decontamination method Kansai Paint Co., Ltd.
New integrated decontamination system in structures
Kikuchiseisakusho. Co.,
Ltd. (NPO) Physical
Education Environment
103

Invention Organization,
Organic System
Decontamination technology by combination of bio-extron Yamizo Material Inc.
method and wiping with iron chelating agent
Ultra small portable fully automatic decontamination Astec Tokyo
wastewater / sludge treatment system
Decontamination of agricultural water using side grooved Kasai Co., Ltd.
radioactive cesium adsorbent
Ultrasonic Soil Cleaner
Aomi Construction Co.,Ltd.
Flexible container that combines safety and volume reduction Tatsuno Corporationof leaching waterTechnology for reducing volatilization of agricultural lands Nichisuikan Giken
and schoolyards and temporarily placed soils
Reduction technology of soil contaminated with cesium and Honma Corporation., Japan
2013 dredged soil
Port Consultants, Ltd.,
Kankyo Anetos Co., Ltd.
Purification system for wastewater recovered during Clean Tech Koizumi
decontamination
Corporation
Decontamination technology such as fire prevention tank / pool Tokyu Construction/ adjustment pond
Validation of effective decontamination techniques and Obayashi Road Corporation,
methods in cracks on pavement surface
Tohoku Branch office
Validation of effective decontamination technique of road side Sato Forestry Co., LtdgrooveVerification of effect by decontamination target etc. in housing Pacific Consultants Co., Ltd.,decontamination
Japan Atomic Energy
2014
Agency, Pony Industry Co.,
Ltd., Matsuura DenkoshaCo., Ltd.
Validation of effective measuring technique in housing Japan Radiation Engineeringdecontamination
Co., Ltd., Hitachi Power
Solutions Co., Ltd.
Effect of decontamination due to differences in geographical
Earth Design International,
conditions
Inc.
Efficient post-monitoring and creation of air dose rate map
Kokusai Kogyo Co., Ltd.
2015
Fukushima Sales Office
Survey on distribution of radioactive materials after Kanso Co., Ltd., Fukushimadecontamination
OfficeSource: Fukushima Prefecture “ 2011 Fukushima Decontamination Technique Demonstration Project
Implementation Test Result” (April, 2012)
Fukushima Prefecture “2012 Report on the 1st Fukushima Decontamination Technique Demonstration
Project Implementation Result Report” (February, 2013)
Fukushima Prefecture “2012 Report on the 2nd Fukushima Decontamination Technique Demonstration
Project Implementation Results “ (June, 2013)
Fukushima Prefecture “2013 Fukushima prefecture decontamination technology demonstration project
implementation report” (June, 2014)
Fukushima Prefecture “2014 Fukushima prefecture municipal decontamination technology support project
implementation report” March, 2015)
Fukushima Prefecture “2015 Fukushima prefecture municipal decontamination technology support project
demonstration test result report” June, 2016)104

Commentary

Decontamination technology demonstration projects by Fukushima Prefecture

Status of Fukushima Prefecture decontamination technology demonstration projects
Project

Decontamination technology

Municipal decontamination technology

namedemonstration projects

support projects

Year
Number oftestedtechnologies

FY2011FY2012FY2013

FY2014FY2015FY2016

19

18

5

4

3

2

Recovery type high pressure
water cleaning technology

Commentary

Roadside gutter cleaning
technology

Technology to avoid rainwater
pooling on top of Temporary
Storage Sites

Decontamination in Joban expressway

Among infrastructure facilities, there were strong local requests for quick restoration of the Joban
Expressway as it passes through areas with high air dose rates. Therefore, decontamination was necessary
for to protect workers from radiation at the time of restoration work, so upon receiving an inquiry from
the Ministry of Land, Infrastructure and Transport and the East Nippon Expressway Co. (NEXCO East
Japan), MOE started a model demonstration project in March 7, 2012, in collaboration with theReconstruction Agency and the Ministry of Land, Infrastructure and Transport.
The model demonstration project was completed on July 31, 2012, with the projection that evensections with the highest annual dose exceeding 200 mSv/y could be reduced to less than 50 mSv/y.
Based on the results, work was carried out for decontamination of the Joban Expressway starting in
December, 2012 and it was completed in June 2013.
Accordingly, as a result of restoration and maintenance work by NEXCO East Japan Ltd., after thereopening of the Joban Tomioka Interchange (IC) - Hirono IC section on February 22, 2014, the Namie
IC to Minamisoma IC reopened on December 6, 2014, and Joban Tomioka IC to Namie IC opened on
March 1, 2015, so all routes of the Joban Expressway were open for traffic.
For this decontamination work, new technology such as recirculating high pressure water washing wasintroduced. Decontamination was carried out in an integrated manner with restoration and maintenancework by NEXCO East Japan. The result was a positive example of achieving a significant reduction inradiation doses while at the same time reducing waste and minimizing the amount of time needed for the
work.
105

Technical Guides and Guidelines

On December 14, 2011, MOE formulated and released the “Decontamination Guidelines,” which
systematically compiled decontamination methods and other information based on the Act on Special
Measures concerning the Handling of Pollution by Radioactive Materials. The guidelines described clearly
and in detail such topics as the investigation and measurement of the status of contamination, actual
decontamination, and the processes for collecting, transporting and storing soil removed bydecontamination. Below are its four sections.
Part 1: Guidelines on investigation and measurement methods
for the status of environmental pollution in Intensive
Contamination Survey Areas (ICSA)Part 2: Guidelines relating to measures for decontamination, etc.
Part 3: Guidelines for the collection and transport of removed
soilPart 4: Guidelines for the storage of removed soil
Although these guidelines mainly deal with decontamination
done by municipalities, decontamination by the national
government is also covered. They were revised as a second
edition in May 2013 to incorporate knowledge obtained
subsequently, as well as new technologies, and input from experts
and local governments, etc., and in order to promote
decontamination more effectively, supplements were added in

Figure 3-15 Decontamination Guidelines

December 2013, December 2014, and September 2016.
As for the matters such as the storage and treatment of waste contaminated by radioactive materials fromthe accident, “Guidelines for Waste” were formulated on December 27, 2011..
Part 1: Guidelines on investigation and measurement methods for the status of environmental pollution
in Intensive Contamination Survey Areas (ICSA)
These guidelines are Part 1of the Decontamination Guidelines and as shown in Figure 3-16, they explain
the investigation and measurement in Intensive Contamination Survey Areas (ICSA) of environmental
pollution caused by radioactive materials from the accident, as well as measurement methods required for
detailed measurement, decontamination, and storage of removed soil in decontamination implementation
areas, plus recommended methods for making accurate measurements.
Part 2: Guidelines relating to measures for decontamination, etc.
These guidelines use specific cases to explain a ministerial ordinance of MOE concerning measures fordecontamination, etc. of soil, etc., as stipulated in Article 40, paragraph 1 of the Act on Special Measuresconcerning the Handling of Environment Pollution by Radioactive Materials.

106Each municipality is to select appropriate methods from among the decontamination methods describedin the guidelines based on the decontamination implementation plan formulated. The targets ofdecontamination include buildings, roads, and farmland, and forests within 20 m from the edge of theforest.
The document mentions that the decontamination methods described in the guidelines were deemed
appropriate at the time of writing, but that they will be revised from time to time based on future knowledge
and technological development, etc.

Figure 3-16 Details for implementing decontamination and the survey measurements (Part 1)

Part 3: Guidelines for the collection and transport of removed soil
These guidelines use cases to provide detailed explanations of a ministerial ordinance of MOE
concerning the collection and transport of removed soil as stipulated in Article 41, paragraph 1 of the Act
on Special Measures.
The document explains that when collecting and transporting removed soils, safety measures are
required to prevent radioactive substances in the removed soil from damaging human health and the living
environment, and for that it is necessary (1) to prevent radioactive materials from being scattered ordischarged during loading, unloading and transporting, and (2) to limit public exposure to radiation from107the removed soil being collected and transported. For these safety measures, the guidelines refer to existing
rules for the transportation of radioactive materials, summarize the key points for the collection andtransport of removed soils, and explain in detail what needs to be done.
Part 4: Guidelines for the storage of removed soil
These guidelines use cases to provide detailed explanations of a ministerial ordinance of MOE
concerning the storage of removed soil as stipulated in Article 41, paragraph 1 of the Act on Special
Measures.
The guidelines cover two modes of storage (“on-site storage” and “storage at Temporary Storage Sites”)
and summarize the facility requirements and management requirements for safe storage. Details of the
facility specifications and safety management that conform to these requirements and methods are also
illustrated.

108

Table 3-11 Revision of Decontamination Guidelines
Time of revision

Main revisions / supplemental contents

May 2013
Over a year after the first edition, after exchanging opinions with experts and concerned(Second edition)
local governments based on the accumulation of knowledge from decontamination worketc., based on questions and discussion points the following revisions were made.
(1) Including new technology· Extra high pressure water washing, recovery type high pressure water washing, steam
cleaning, decontamination of artificial turf, etc.
(2) Including know-how of decontamination work, incorporating effective and efficientmethods, clarifying decontamination targets.
· Descriptions of points to be noted for enhancing the decontamination effect for eachdecontamination method: decontamination of roofs (cautions for wiping, high pressure
water washing), decontamination of plants (method of deep cutting of turf), etc.
· Organization and enhancement of measurement description (surface contamination
density, GM survey meter, time constant etc.)· Positioning of agricultural drainage channels subject to decontamination(3) Responding to improper decontamination· Describe concrete methods concerning wastewater treatment· Describe concrete methods concerning cleaning etc. of tools(4) Improving understandability· Flowchart of decontamination work procedure· Full replacement and addition of photos(5) Improving explanations from risk communication perspective· Description of solubility of radioactive substances in water and data on adsorption to soil
· Presentation of data on groundwater monitoring at storage (Temporary Storage Sites)
Dec. 2013(Second edition
supplement)

Based on “Current arrangements on forest decontamination methods” etc., reflected
technical information such as new knowledge and decontamination methods in forests.
(1) Addition of knowledge on the dynamics of radioactive substances in forests(2) Addition of knowledge on effective decontamination methods

Dec. 2014(Second edition

Based on the “Summary of ideas of countermeasures in rivers, lakes, etc.” reflected
technical matters such as new knowledge and decontamination methods in rivers, lakes

supplement)

and the like.

Sep. 2016
Measures for decontamination, etc. in forests and details of strengthening management(Second edition
systems reflected.
supplement)(1) Change of title, etc.
· “Measures for decontamination, etc. of plants” was changed to “Measures fordecontamination, etc. of plants and forests”(2) Measures for decontamination, etc. of places where people routinely enter the forest· Regarding measures for decontamination, etc. at places where people routinely enterin forests such as satoyama around dwellings, a description related to the range of
decontamination and the way of thinking of measurement points was added(3) Measures to prevent sediment discharge· Addition of descriptions pertaining to ideas and installation examples of application
points concerning sediment discharge measures to be implemented as necessary as
measures for decontamination, etc. of forests(4) Update / addition of knowledge
109

Time of revision

Main revisions / supplemental contents· Addition of knowledge updated after December 2013
(5) Response in case of disaster in collection, transportation and storage of removed
soil· September 2015 - Added a description on countermeasures against disasters in orderto prevent the recurrence of soil runoff, etc. during disasters such as the Kanto andTohoku heavy rains

Guidelines on Handling Local Areas Contaminated by Radioactive Materials (Ministry of theEnvironment)
While the “Decontamination Guidelines” indicate decontamination methods based on the Act on Special
Measures concerning the Handling of Environment Pollution by Radioactive Materials, locations outsideof those covered by the Act were also confirmed to have localized contamination, so on March 12, 2012
MOE released the “Guidelines on Handling Local Areas Contaminated by Radioactive Materials.”
These guidelines summarize key points on specific methods such as efficient ways to discover these
localized contaminated sites, particularly where soil and the like has been contaminated by rainwaterdrainage containing radioactive substances, as well as detailed investigation methods after discovery, andthe implementation of measures to deal with them.
Technical Guidelines on Decontamination Operations and Handbook for Whole Area
Decontamination (Fukushima Prefecture)
In order to ensure that municipalities could implement decontamination consistently when doing
decontaminating in Intensive Contamination Survey Areas (ICSA) based on decontamination
implementation plans, there was a need to provide concrete and concise decontamination procedures andmanagement standards. Thus, based on the “Decontamination Guidelines,” Fukushima Prefecture prepared
the “Technical Guidelines on Decontamination Operations” and released them on January 31, 2012.
These technical guidelines indicate decontamination methods, how to ensure safety in work related todecontamination, decontamination work management standards, safe facility installation standards (roads),
and so on.
In addition to the technical guidelines, based on knowledge gained from model projects, as a reference
for municipal officials when municipalities conduct whole area decontamination, Fukushima Prefecture,
released the “Handbook on Whole Area Decontamination” in March 2012, showing basic procedures, how
to proceed with administrative tasks, and points to keep in mind.

110Figure 3-17 Technical Guidelines on Decontamination Operations (Fukushima Prefecture)

Technical Guidelines on Removal and Control of Scattering of Radioactive Materials in Forests
The Ministry of Agriculture, Forestry and Fisheries summarized approaches and implementation
methods for measures to deal with radioactive substances in forests based on the results of the field trials
and released the “Technical Guidelines on Removal and Control of Scattering of Radioactive Materials in
Forests” on April 27, 2012.
The technical guidelines describe the characteristics of forest contamination, approaches for measures
to deal with radioactive substances, such as removal of sedimentary organic matter such as fallen leaves
and removal of branches and leaves.
Technical Manual for Decontamination of Agricultural Land
The Ministry of Agriculture, Forestry and Fisheries compiled information on survey, design,
accumulation, construction management etc. necessary for implementation of decontamination of
farmland based on the results of demonstration projects for decontaminating farmland, and on February
22, 2013, released the “Technical Document for Decontamination of Farmland.”This technical manual is composed of four parts (“Survey and Design,” “Work Process,”“Quantification,” and “Reference Materials”). “Survey and Design” describes the content of preliminary
surveys necessary for undertaking farmland decontamination, methods for measuring radioactive materials,
approaches for determining work zones and work periods for farmland decontamination work, an outline111

of methods implemented in demonstration work, and design approaches.
For each type and item of work and the “Work Process” part describes key points for each type of work,
method, and process, as well as preparatory and temporary work. The “Quantification” part summarizes
productivity measurements for each work stage based on productivity studies from the demonstration trials.
Measurement technology, etc.
On October 21, 2011, the Ministry of Education, Culture, Sports, Science and Technology formulated
and announced “Guidelines on Radiation Measurement” as guidelines concerning handling and methodsof measuring using measurement instruments.
In the above-mentioned “Decontamination Guidelines” (MOE), Part 1 describes the survey andmeasurement methods for the state of contamination, and Part 2 describes methods for measurement prior
to and after decontamination.

Commentary Implementation methods for decontamination of farmland (deep plowing and burden
stripping)
Regarding farmland, there was a strong desire among farmers in Areas under Evacuation Orders to havethe topsoil removed as they could not accept cesium remaining in their fields. On the other hand, after
the accident, farm practitioners tried various efforts to lower the concentrations of radioactive materials
in crops, with the support of agricultural experts and technicians. Some farmers had a strong resistanceto the removal of the cultivation layer that they had developed with great care (soil to a depth of about
15 to 30 centimeters which greatly affects crop growth), so it was decided to explore decontamination
techniques that would not involve topsoil removal.
In this context, on September 14, 2011, the Ministry of Agriculture, Forestry and Fisheries summarized
the results of research to date and announced its approach, saying, “On farmland with of radioactive
cesium concentrations at 5,000 Bq/kg or lower (which is the criterion for determining areas where rice
planting is to be restricted), as necessary, it is appropriate to take measures to reduce the migration toagricultural crops and reduce the air dose rates, by inversion tillage, etc.” 42 The Nuclear Emergency
Response Headquarters announced a similar message on September 30 that year.
On September 30, 2011, the government released a “Publication of appropriate methods ofdecontamination of farmland” (Nuclear Emergency Response Headquarters). For areas with planting
restrictions or voluntary refraining from cultivation being encouraged, the government said, “It would
normally be appropriate to scrape off the surface soil layer containing radioactive cesium, but considering
the radioactive cesium concentration in the soil, the current condition of the site, and conditions of thesoil, etc., in addition to scraping the topsoil, it is also possible to have the option of soil stirring withwater, removal, and inversion tillage, etc.. As for areas that had already been plowed, the government
issued a guideline saying that inversion tillage and deep tillage should be performed.
Therefore, from 2011 onward, in areas where farming continued, rather than removing the cultivation42

the Ministry of Agriculture, Forestry and Fisheries “About radioactive materials removal technology (decontamination
technology) of agricultural soil” (September 14, 2011)112

layer, it was decided to use inversion tillage or deep tillage to reduce the radioactive concentrations in
the cultivation layer and to reduce the air dose rate, and sludge in waterways was to be removed asnecessary. On the other hand, in areas with planting restrictions or voluntary refraining from cultivation,
as grasses and shrubs would take over or fields would grow wild if farmland was left uncultivated for ahalf-year to several years , rather than having a resistance to removing the cultivation layer, many farmers
commented that they wanted to remove the radioactive materials properly and be able to resume farming.
As for MOE, in the Special Decontamination Areas, while offering the option of deep plowing anddeep tillage for farmland with comparatively low concentrations, in other areas the top soil was stripped.
Among Intensive Contamination Survey Areas (ICSA), while deep plowing and deep tillage were done
outside of Fukushima Prefecture, inside the prefecture, burden stripping and inversion tillage were done,
depending on the conditions of contamination.

Tenders for Decontamination WorkFor decontamination work contracted out by MOE in the Special Decontamination Areas, just as withpublic works projects, based on government procurement procedures, public announcements were madefor public tenders for decontamination work for procurement on the basis of specification documents, andthen decontamination contractors were selected and work contracted out. For individual tasks indecontamination work, just as there are many similarities with public works projects, the general tendering
processes for public works were applied, but some additional matters were adopted that applied
specifically to decontamination work.
For decontamination work contracted out in Special Decontamination Areas MOE provided common
specifications for the work, and in order to ensure consistency in the interpretation of the details of bid
contracts and design drawings as well as to specify other essential matters and ensure the proper executionof contracts, MOE formulated Common Specifications for Decontamination and Other Work. Also, foreach individual tender, in accordance with the actual situation of the area and site where decontamination
was to be done, MOE prepared unique specifications stipulating the specific technical requirements basedon the Common Specifications for Decontamination and Other Work, did procurement for specificdecontamination projects based on both the Common Specifications for Decontamination and Other Workand the special specifications.
If after consent has been obtained from the landowner or stakeholder and the decontamination method
for each decontamination target had been determined and a decision made to initiate government
procurement procedures for decontamination– then MOE would contract out decontamination work in theSpecial Decontamination Areas, based on an approximate estimate of quantities (e.g., area to be
decontaminated and the number of buildings, for each type of target to be decontaminated and method of
decontamination), on the basis of the results of a preliminary survey. In the process of actually proceedingwith decontamination work, the decontamination method for each target of decontamination would be
decided and the quantity for decontamination work area and number of buildings would be determined, so
the approach used in the contracts between MOE and the decontamination contractors was to settle the113monetary payment for the work contract based on the unit price for work and amount of work actually
performed. Thus, MOE issued the “Provisional Quantification Standards for Decontamination Work in
Special Decontamination Areas” (First Edition) specifying unit costs in May 2012. Thereafter, productivity
surveys were conducted and changes made as needed based on the results, with the tenth edition being
released April 2017.

For decontamination, etc., work contracted out MOE in Special Decontamination Areas, a publicannouncement was done using documentation including the Common Specifications for Decontamination
and Other Work, special specifications, and Provisional Quantification Standards for Decontamination
Work, etc., in accordance with government procurement procedures. An open call was made for technicalproposals from decontamination contractors, submissions were evaluated and reviewed, and then bids wereentered and opened, and winning bids were decided based on a comprehensive evaluation method on thebasis of price points and technical evaluation points. For whole area decontamination, MOE made a publicannouncement on May 11, 2012, that the first project would be in Tamura City.
In Intensive Contamination Survey Areas (ICSA), local municipalities formulated decontamination
implementation plans and placed orders with decontamination contractors based on those plans, and thedecontamination contractors implemented the decontamination work. Regarding municipalities outside of
Fukushima Prefecture, decontamination work proceeded using funding from the national government’s
Radiation Reduction Countermeasures Special Emergency Project Cost Subsidy. For municipalities within
Fukushima Prefecture, decontamination work proceeded with MOE providing a subsidy to the Fukushima
Prefecture Citizens’ Health Management Fund, which was set up by the prefectural government, and theprefecture then administering the Decontamination Countermeasure Business Grant. Decontamination
methods were prescribed in the Decontamination Guidelines, and implementation was also done based on
detailed rules prescribed in decontamination-related Q&A.

In order to decontamination work with some unknowns and on a large scale, it is important to haveprocedures and mechanisms in place that enable smooth progress with the ordering and execution of work.
Since MOE had limited resources of personnel who possessed experience with direct implementation of
public works projects, MOE benefited from the capacity of highly experienced personnel from the Ministryof Land, Infrastructure, Transport and Tourism and Agriculture, Forestry and Fisheries and made use of
those ministries’ existing rules and systems. The decontamination work began with MOE provisionallyformulating standard specifications, which were essential for decontamination work being commissioned
directly by the national government. Subsequently, efforts proceeded through trial and error, depending on
the actual situation at the decontamination sites, and over time the specifications and other documentation
were gradually improved. As a result, the details became more clearly established, from the overall
framework of decontamination work to specific work methods, making it possible to initiate
decontamination work in a timely way and ensure work quality.

114

On the other hand, in the case of conventional public works, detailed design drawings can be preparedin advance, whereas for decontamination, work is contracted before all the consent forms are received, so
the order is issued based on approximate numbers. For this reason, it was necessary to agree in advance onmatters such as unit prices so that payment adjustments could be settled after decontamination work was
actually performed.
Also, when orders were being issued, it is necessary to present documentation on work productivity foreach decontamination target, but it was difficult to accurately determine this productivity in advance.
Therefore, based on the results of the Cabinet Office’s model projects and the decontamination work
conducted independently by municipalities and Fukushima Prefecture, trial calculations by ministry
personnel experienced in public works at the Ministry of Land, Infrastructure, Transport and Tourism andMinistry of Agriculture, Forestry and Fisheries made it possible for MOE to order work in a timely way.
At actual decontamination sites, there were various situations such as places where trees grew in after
the earthquake disaster, so the circumstances did not necessarily agree with the situation in model projects.
For this reason, MOE actively pursued the PDCA (Plan-Do-Check-Act) cycle, which corrects the situationaccording to the actual situation at the work site and feeds back the results. Decontamination on-site may
have to be implemented in ways not stipulated in the Decontamination Guidelines and Common
Specifications. In this case, national government supervisory personnel and decontamination contractors
proceeded through trial and error and mutual communication. Such knowledge was shared amongsupervisory personnel, and reflected as appropriate in standard specifications documentation, etc.

Common Specifications for Decontamination and Other Work
Common Specifications for Decontamination and Other Work describe prior to work being done thetypical technical requirements and work details necessary for work such as work sequence, quality ofmaterials to be used, quantities, degree of completion, and work methods, etc.
The types of work indicated in this documentation was for work methods in Special Decontamination
Areas where radiation doses were high, so some decontamination work types done by municipalities inIntensive Contamination Survey Areas were not listed.
The first edition was developed in May 2012, and based on experience gained through decontamination
work, MOE made updates such as the addition of other decontamination work methods, and in April 2017
released the tenth edition of Common Specifications for Decontamination and Other Work. Tables 3-12 to
3-21 provide lists of the work types listed in Common Specifications for Decontamination and Other Work.
When procurement was being done for a specific decontamination project, the Common Specifications
for Decontamination and Other Work were supplemented in light of the actual situation of the target area
to be decontaminated and the site conditions, using special specifications prepared separately for thetechnical requirements particular to the work in question.
In addition to Common Specifications for Decontamination and Other Work, MOE also developed
Common Specifications for Decontamination-related Operations and Common Specifications forSupervisory Operations.

115

Table 3-12 List of methods for decontamination work, etc. (Residential area, etc.)
Details

1.
Residential
areas,
etc.

Decontamination method

1.1 Roofs,
rooftops

OutlineSediments such as fallen leaves, moss,
1.1.1.1 Removal of deposits mud and the like are removed with rubber
gloved hands and scoops.
1.1.1 Roof
Wipe carefully with waste cloth(Other than
1.1.1.2 Wiping
moistened with water or the like.
concrete)
Clean carefully with deck brush or
1.1.1.3 Brush cleaning
scrubber. Pour water before brushing andrinse with water after brushing.
1.1.2.1 Removal of deposits Same as 1.1.1.1.
1.1.2 Roof
1.1.2.2 Wiping
Same as 1.1.1.2.
(concrete)
1.1.2.3 Brush cleaning
Same as 1.1.1.3.
1.2 Walls,
Same as 1.1.1.2. A brush or the like is
1.2.1 Other than 1.2.1.1 Wiping
Fencesused instead of waste cloth or the like.
earth wall
1.2.1.2 Brush cleaning
Same as 1.1.1.3.
Same as 1.1.1.2. Instead of cloth or the
1.2.2 Mud wall 1.2.2.1 Wiping
like, carefully remove it with a brush or
the like in a dry state.
Remove accumulated fallen leaves, moss,
1.3
1.3.1.1 Removal of deposits mud and the like with a hand wrapped
Gutters
with rubber gloves, a brush or a brush.
1.3.1 Eaves
1.3.1.2 Wiping
Same as 1.1.1.2.
gutterWashing with high pressure water of
1.3.1.3 High-pressure water about 5 MPa or less and about 2 L/m bycleaning
using a high pressure washer centering on
a part where wiping work is difficult.
If deposits are present, remove them in
1.3.2.1 High-pressure water advance. Wash with high pressure water
1.3.2
washingof 5 MPa or less and 2 L/m using a highDownspoutspressure washer.
1.3.2.2 Wiping
Same as 1.1.1.2.
Sediments such as fallen leaves, moss,
1.4
1.4.1.1 Removal of deposits mud and the like are removed with a rake
Gardensor the like.
Prior to removal of deposits and top soil,, etc.
1.4.1.2 weeding, lawn
weeds that interfere with work are weededmowingand mowed by a shawl type mowing
machine or human power.
Deep-grass turf with a hand-guided lawn
1.4.1.3 Deep cutting of turf mower (sod cutter etc.) (about 3 cm).
Leave the root mat layer.
1.4.1.4 Stripping of grass
Peel off turf with human power (about 5
and lawncm).
1.4.1 Unpaved
When stripping off the lawn, replace thesurfaces
1.4.1.5 turf
same type of turf as before.
Use a high pressure water washer at 51.4.1.6 High-pressure water MPa or less, and wash it with water ofcleaning of gravel, crushed about 20 L/m2. Gravel, crushed stone isstoneplaced in a tank, and high pressure water
washing is performed.
Gravel and crushed stone are removed
1.4.1.7 Removal of gravel
homogeneously by scoop etc. (about 5
and crushed stonecm).
When gravel and crushed stone are
1.4.1.8 Cover of gravel,
removed, it covers up to the present
crushed stone
condition height with the same kind of116

gravel and crushed stone as before.
Using screeching etc., homogeneously
1.4.1.9 Scraping of topsoil
scrape off the soil of the garden soil
(about 5 cm).
When removing the top soil, cover it to
1.4.1.10 Land surface
the original height, generally by the same
coveragekind of soil as before. Leveling the top
soil and leveling.
1.4.1.11 Removal of topsoil Take a scoop with shovels, rakes, etc. tosuch as near the root of trees collect the fallen leaves and soil.
Branching and pruning of garden trees
and hedges by pruning machines and1.4.1.12 Branching of garden
branch cutting shears to the extent thattree
there is no significant influence on thegrowth of trees.
Troubled trees of diameter 6 cm or more
1.4.1.13 Logging of troubled
at a breast height are cut from the root
trees
using a chainsaw or the like.
Cut off the troubled trees of diameter 6
1.4.1.14 Damaged trees
cm or more at a breast height, using a
chainsaw or the like, and extract it.
Peel off the surface layer soil by about 10
cm and the lower soil by about 20 cm,
1.4.1.15 Deep plowing
uniformly, flatten the surface soil, level
the lower soil, and level the surface.
1.4.1.16 Wiping outdoor
Wipe off outdoor equipment such as waterequipment
heater and outdoor unit of air conditioner.
Collecting, transporting, and1.4.1.17 Removal ofaccumulating obstacles that interfere withobstacles around houses
work for decontamination, etc. aroundhouses.
1.4.2.1 Removal of deposits Same as 1.4.1.1.
1.4.2.2 Brush cleaning
Same as 1.1.1.3.
Wash with high pressure water of about
1.4.2.3 High-pressure water
20 MPa and 20 L/m2 using a suction typecleaninghigh pressure water washer.
1.4.2 Pavement
Using a hand-held cutting machine, thesurface
1.4.2.4 Scraping
surface is homogeneously scraped off(about 5 mm).
Apply to a relatively wide paved surface.
Grind the surface uniformly by knocking
1.4.2.5 Blast
the abrasive on the surface with a shot
blasting machine.

117

Table 3-13 List of methods for decontamination work, etc. (School)
Details

Decontamination method
Outline
2.1 Roof
2.1.1.1 Removal of
Same as 1.1.1.1.
2.School roof top
deposits
2.1.1.2 Wiping
Same as 1.1.1.2.
2.1.1
2.1.1.3 Brush cleaning
Same as 1.1.1.3.
Roof · roof top
Wash with high pressure water of about 15
2.1.1.4 High pressure
MPa and 20 L/m2 using a high pressure
water cleaningwater washer. Collect the wastewater in a
rainwater cell.
2.2 Outer2.2.1.1 Wiping
Same as 1.2.1.1.
wall,
2.2.1.2 Brush cleaning
Same as 1.1.1.3.
2.2.1
fence
Wash with high pressure water of about 15
Exterior wall /2.2.1.3
Highpressure
MPa and 20 L/m2 using a high pressure
fencewater cleaningwater washer. Collect the wastewater in a
rainwater cell.
2.3 Rain gutter※Same as 1.Residential area、1.3Rainwater gutter
2.4Ground
2.4.1.1 Removal of
Same as 1.4.1.1.
2.4.1 Sediments
etc.
deposits
2.4.2.1 weeding, lawnSame as 1.4.1.2.
mowingDeep-grass turf with a large lawn mower,
2.4.2.2 Deep cutting ofhand guided lawn mower (about 3 cm).
2.4.2 Grass, lawn turf
Leave the root mat layer.
2.4.2.3 Grass and grass
Remove the grass and turf with backhoe
stripping(about 5 cm).
2.4.2.4 Turf
Same as 1.4.1.5.
2.4.3 Gravel,
Wash with high pressure water of 5 MPa or
crushed stone
2.4.3.1 High-pressureless and about 20 L/m2 using a high pressure
water cleaning of gravel, water washer. Gravel, crushed stone iscrushed stone
placed in a tank, and high pressure water
washing is performed.
Gravel and crushed stone are removed
2.4.3.2 Removal of gravel
homogeneously by backhoe etc. (about 5
and crushed stonecm).
If gravel or crushed stone is removed, it
2.4.3.3 Cover of gravel, covers up to the present condition heightcrushed stone
with the same kind of gravel and crushedstone as before.
2.4.4 Soil
2.4.4.1 Removal of
Same as 1.4.1.11.
topsoil such as drainage
outlet, near the eaves
2.4.4.2 Scraping of
Remove the top soil homogeneously by
topsoilbackhoe etc. (about 5 cm).
When topsoil is removed, cover it up to the
2.4.4.3 Land surface
original thickness by the same kind of soil ascoverage
before. Leveling the top soil and leveling.
Peel off the surface layer soil by about 10
cm and the lower soil by about 20 cm,
2.4.4.4 Deep Plowing
uniformly, flatten the surface soil, level the
lower soil, and level the surface.
2.4.5 Planting
2.4.5.1 Removal of
Same as 1.4.1.11.
topsoil near the root of
trees
2.4.5.2 Branch of planting Same as 1.4.1.12.
2.4.5.3 Logging ofSame as 1.4.1.13.
118

2.4.6 Pavement
surfacetroubled trees
2.4.5.4 Dropping ahindrance tree
2.4.6.1 Removal of
deposits
2.4.6.2 Brush cleaning
2.4.6.3 High-pressure
water cleaning

Same as 1.4.1.1.
Same as 1.1.1.3.
Same as 1.4.2.3.

Using a road surface cutting machine or the
like, the surface is scraped off (about 3 cm).
2.4.6.5 Blast
Same as 1.4.2.5.
Use a super high pressure water washer
2.4.6.6 Extra high(cleaning water recovery type) of 150 MPa
pressure water cleaning or more to scrape the paved surface (about 5
mm).
When paving off the pavement, pave it so
2.4.6.7 Resurfacingthat it becomes the same as the original
pavement surface.
Wash with a brush or cloth, wash highpressure water washing parts of metal
2.5.1.1 Wiping, cleaning,playground equipment, scrape off rust withscraping
sandpaper, etc. Wooden playthings wipe or
polish with a waste cloth, brush or the like.
2.4.6.4 - (1) (2) scraping

2.5 Play
2.5.1 Playequipment equipment

Same as 1.4.1.14.

119

Table 3-14 List of methods for decontamination work, etc. (Park)
Details
3. Park 3.1 Roof · rooftop(small) 3.2 Outer wall · fence
3.3 rain gutter
3.4 Ground etc.
3.5 Playgroundequipment

Decontamination method
Outline※ Same as 2. School, 2.1 roof· rooftop.
※ Same as 2. School, 2.2 outer wall.
※ Same as 2. School, 2.3 rain gutter.
※ Same as 2. School, 2.4 ground etc. (except 2.4.4.1, 2.4.6.6, 2.4.6.7).
※ Same as 2. School, 2.5 playground equipment etc.

3.6
3.6.1
3.6.1.1 Wiping
Cemetery Cemetery (in the 3.6.1.2 Brush cleaning
block)
3.6.1.3 High-pressure water

4. Park 4.1 Roof · rooftop(Large) 4.2 Outer wall · fence

4.3 rain gutter
4.4 Ground etc.
4.5 Playgroundequipment

Same as 1.1.1.2.
Same as 1.1.1.3.
Same as 1.4.1.6.

cleaning of gravel, crushedstone
3.6.1.4 Removal of gravel
Same as 1.4.1.7.
and crushed stone
3.6.1.1 Wiping
Same as 1.4.1.8.
※ Same as 2. School, 2.1 roof · rooftop.
※ Same as 2. School, 2.2 outer wall.
※ Same as 2. School, 2.3 rain gutter.
※ Same as 2. School, 2.4 ground etc.
※ Same as 2. School, 2.5 same as playground equipment etc.

Table 3-15 List of methods for decontamination work, etc. (Large facility)
Details
Decontamination method
Outline
5.1 Roof, rooftop※ Same as 2. School, 2.1 Roof · rooftop.
5.2 Outer wall, fence※ Same as 2. School, 2.2 Outer wall.
5.3 Rain gutter※ Same as 2. School, 2.3 Rain gutter.
5.4.1
Deposits.
※ Same as 2. School, 2.4 Ground, etc. 2.4.1 Sediments ~ 2.4.5 Same as~
5.Large
5.4Ground 5.4.5 Planting planting.
facilityetc.
5.4.6 Parking
lot (concrete, ※Same as 2. School, 2.4 Ground, etc. 2.4.6 Same as paved surfaceasphalt)
5.5 Playground equipment ※same as 2. School, 2.5 Playground equipment etc.
Table 3-16 List of methods for decontamination work, etc. (Roads / Slope)
Details
6.Roads 6.1 Paved
6.1.1
roads
Sediment
6.1.2
Roads /
sidewalks

6.2.1 Road
Surface6.2 Unpaved(Soil)
roads

Decontamination method
Outline6.2.1.1 Removal of deposits
Same as 1.4.1.1.
6.1.2.1 High-pressure watercleaning
6.1.2.2 Scraping
6.1.2.3 Blast
6.1.2.4 Ultra High Pressure
Water Cleaning
6.1.2.5 Resurfacing
6.1.2.6 Cleaning by roadcleaning vehicle
6.2.1.1 - (1) weeding
6.2.1.1- (2) Removal of
sediment
6.2.1.2 Topsoil scraping

120

Same as 2.4.6.3.
Same as 2.4.6.4 - (1) (2).
Same as 1.4.2.5.
Same as 2.4.6.6.
Same as 2.4.6.7.
Clean up with a road cleaning vehicle toprepare for decontamination work or
maintain it.
Same as 1.4.1.2
Same as 1.4.1.1.
Remove the topsoil with homogeneous
elevation by backhoe etc. (About 5 cm

6.2.2 Road
Surface(Gravel,CrushedRoad)

6.3.Guardrai 6.3.1
lGuardrail
6.4

6.4.1 Side
grooves etc.

6.5.pedestria 6.5.1
n overpass pedestrian
overpass
6.6
Roadside
Trees,
Planting

7.Slope 7.1 Slope

6.6.1
Sediments
6.6.2 Grassfrom maximum height).
6.2.1.3 Land surface coverage When topsoil is removed, cover it up to
the original thickness by the same kind of
soil as before. Leveling the top soil andleveling.
6.2.1.4 Deep plowing
Same as 2.4.4.4.
6.2.2.1 - (1) weeding
Same as 1.4.1.2.
6.2.2.1- (2) Removal of
Same as 1.4.1.1.
sediment
6.2.2.2 High-pressure water
Same as 2.4.3.1.
cleaning of gravel, crushedstone
6.2.2.3 Removal of gravel and Remove the topsoil with homogeneous
crushed stoneelevation by backhoe etc. (About 5 cm
from maximum height).
6.2.2.4 Cover of gravel,
When topsoil is removed, cover it up to
crushed stone
the original thickness by the same kind of
soil as before. Leveling the top soil andleveling.
6.3.1.1 Brush cleaning
Same as 1.1.1.3.
6.3.1.2 High-pressure water
Same as 2.2.1.3.
cleaning
6.3.1.3 Wiping
Same as 1.2.1.1.
6.4.1.1 Removal of sediment Sediments such as fallen leaves, moss,
mud and the like are removed in advanceusing a scoop or the like. Use a drainage
cleaning car etc. at around 14 MPa, andwash it with water of about 20 L/m2.
6.5.1.1 Removal of deposits
Same as 1.1.1.1.
6.5.1.2 High pressure water
Same as 1.4.2.3. Stairway and passageway
cleaning
part.
6.5.1.3 Wiping
Same as 1.1.1.2. Do a hand rail.
6.5.1.4 Brush cleaning
Same as 1.1.1.3. Do a hand rail.
6.6.1.1 Removal of deposits
Same as 1.4.1.1.

6.6.2.1 Weeding and lawnmowing6.6.3Roadsid 6.6.3.1 Removal of topsoile Treesnear the roots of street trees
6.6.3.2 Branch of street trees
7.1.1
7.1.1.1 Removal of grass,
Grasses,fallen leaves, sedimentfallen leaves,sediment

Same as 1.4.1.2.
Same as 1.4.1.11.
Same as 1.4.1.12.
Weed that interfere with work, weed andmow by a shawl type mowing machine or
human power. Sediments such as fallen
leaves, moss, mud and the like are removed
with a rake or the like.

Table 3-17 List of methods for decontamination work, etc. (Farmland )Details
8.Farmland 8.1
8.1.1Grass
Paddy
Field

Decontamination method
Outline8.1.1.1 - (1) Weeding by
Use a shawl type grass cutter or the like andmanpower
weed.
8.1.1.1 - (2) Machine weeding Using weed tractor etc. for weeding.
8.1.1.1 - (3) Accumulation of Using herbicide, grass clippings packing
weeded grasses
machines etc., collect herbicide.
8.1.1.1- (4) Bag packing on
Put the removed contents in large container
container bag
bags by manpower
8.1.1.1- (5) Small transport
Carrier dump etc. are used to carry small
121

8.1.2 Soil

within the site
8.1.2.1 - (1) Land
conditioning
8.1.2.1 - (2) Sprinkling of
surface hardening agent

transportation of large container bags.
Use vibrating rollers and so on, and correct
the unevenness of the topsoil.
The solution mixed with the solidifying
material is sprayed using a seed spraying
machine or the like. The amount ofsolidifying material is 15 t / ha, thesolidified thickness is 2 to 3 cm, and thecuring period is assumed to be 7 days.
8.1.2.2 - (1) - ①② Scraping Use backhoe and scrape off the topsoilof top soil (standard(about 5 cm).
construction method)
8.1.2.2 - (1) - ③ Bag
Use backhoes etc. to accumulate andpacking on sand bags
bagging in large container bags.
(standard construction
method)8.1.2.2 - (1) - ④Small
Using backhoe with crane function, roughtransport (standard
terrain carrier, etc., carry out small transport
construction method)
within the site.
8.1.2.2- (2) - ⑤ Scraping of Backhoe, sludge evacuation vehicle, etc.
top soil (using sludge
are used, and the topsoil is scraped off
discharge / discharge car)(about 5 cm).
8.1.2.2 - (2) - ② Bag
Collect them using bags with crane function
packing in container bags
and pack them in large container bags.
8.1.2.2 - (2) - ③ Small
Same as 8.1.2.2- (1) - ④
transport
8.1.2.2 - (3) - ① Scraping of Using a belt conveyor built-in type scraper,
top soil (using a belt conveyor scrape off the topsoil (about 5 cm), and load
built-in type scraping
the removed material to a rough terrain
machine)carrier and carry it.
8.1.2.2 - (3) - ② Bag
Collect Contents removed by 8.1.2.2- (3) packing into large container① and pack them in large container bags.
bags
8.1.2.2 - (3) - ③ Small
Same as 8.1.2.2- (1) - ④
transport
8.1.2.2 - (4) - ① Scraping of Scrape off the top soil using a towing
top soil (using towing scraper) scraper (about 5 cm), load the removed
materials into an uneven land transport
vehicle and transport it.
8.1.2.2 - (4) - ② Bag
8.1.2.2- (4) - (1) Transport and accumulate
packing into large container
the scraped off substances and pack them inbags
large container bags.
8.1.2.2 - (4) - ③ Small
Same as 8.1.2.2- (1) - ④
transport
8.1.2.4 - (1) Reverse
Reverse plowing is carried out once at a
cultivation (plowing 30 cm)
plowing depth of about 30 cm by tractor
with plow.
8.1.2.4 - (2) Reverse
Perform a reversal plowing once with acultivation (plowing 45 cm)
plowing tractor at a plowing depth of about
45 cm.
8.1.2.4 - (3) Foundation
After reversal tilling, use disc harrows,
groundlaser levelers, etc. level the ground in thefield.
8.1.2.5 Deep tillage
Using a rotary tiller for deep cultivation, tilland stir with about 30 cm in plowing depth
and plow the field deeply.
8.1.2.6 Additional soil
After scraping the soil, use the heavy122

8.1.2.7- (1) Recovery ofgroundwater (soil
improvement materials
spraying)
8.1.2.7- (2) Recovery offertility of soil (zeolite
spraying)
8.1.2.7- (3) Double plowing

machinery to do the loaming of the land,leveling, leveling, recovering to the present
condition height.
Sprinkle the soil conditioner while pullingthe spraying device with the tractor.
Same as 8.1.2.7- (1). Sprinkle with zeolite
instead of soil conditioner.

After sprinkling soil productivity recovery
materials etc., use roundabout etc. tocultivate and stir. Tillage · stirring is twice
as standard .
8.1.2.8 Deep plowing
Same as 2.4.4.4.
8.1.3
8.1.3.1- (1) Cutting down and Willow (leaves, branches, trunks), shreds
Mowingcrushing
and grinding of grass are done by shredder.
downCollect the crushed materials and pack it
willow~with roll baler.
Root
8.1.3.1 - (2) Stumping and
Dig up the root of the willow and separate
removalgrubbing
the root and soil
8.1.4 Willow 8.1.4.1 Willow pull out /Pull out the willow (leaf, branch, trunk,withdrawal accumulationroot) by backhoe with grabber. Loading,conveying, and accumulating in roughterrain vehicles.
8.1.5 Full
8.1.5.1 Full cutting of
Cut the bamboos by chain saw, and do
cutting of
bamboosbranches. Dig into the rhizome of bamboo
bamboosand do root soil separation. Backfilling ofdigging place, leveling and rolling are
performed.
8.1.6
8.1.6.1 Logging of troubled
Same as 1.4.1.13.
Handling of trees
trouble trees 8.1.6.2 Dropping a hindrance Same as 1.4.1.14.
tree
8. 2 Field※8. Agricultural land, same as 8.1 paddy fields.

8.3
8.3.1Grass
Pastures8.3.1.1 - (1) weeding
8.3.1.1 - (2) Packing incontainer bags
8.3.1.1 - (3) Small transport
within the site
8.3.1.2 Spraying greening
base material
8.3.1.3 - (1) Sowing(spraying)

8.3.1.3 - (2) Sowing(suppressing)
8.3.2Soil
8.3.2.1 Scraping topsoil
8.3.2.2 Reverse cultivation
8.3.2.3 Northern cultivation
8.3.2.4 Additional soil
8.3.2.5 Geological recovery
88.4
8.4.1 Water 8.4.1.1 - (1) Removal of
Waterw channels
bottom sediment etc. (Earth
ay
lift)
123

Weeding grassland by tractor etc. Grass it
and pack it with a roll baler.
Same as 8.1.1.1- (4).
Same as 8.1.1.1- (5).
Restore the original state by spraying thegreening base materials using the seedblower (for the customer).
Tractor etc. are used to sow the past pastureseeds and apply fertilization to restore theground power.
Use a tractor and so on to suppress thesurface.
Same as 8.1.2.2- (1)-① to ④.
Same as 8.1.2.4- (1) - (4).
Same as 8.1.2.5.
Same as 8.1.2.6.
8.1.2.7- (1) Same as (2).
Sediments such as fallen leaves, moss, mudand the like which are easy to remove areremoved using a scoop or the like.

8.5
Ridge

8.5.1 Ridge

8.4.1.1 - (2) Removal of
Put into large container bags by man power.
bottom sediment etc. (bagfilling in container bag)
8.4.1.1 - (3) Small transport
Same as 8.1.2.2- (1) - ④
8.5.1.1 - (1) Removal of
Same as 1.4.1.1.
sediment
8.5.1.1 - (2) weeding
Same as 1.4.1.2.
8.5.1.2- (1) Scraping of topsoil Strip the top soil homogeneously by the
backhoe (about 5 cm).
8.5.1.2 - (2) Bag packing into Using a backhoe with crane function, bag it
large container bags
in a large container bags.
8.5.1.2- (3) Small transport
Same as 8.1.2.2- (1) - ④
8.5.1.3 Restoration of levees After scraping the levee, clay using heavymachinery, build the levee, finish the legal
surface and restore it to the current height.

Table 3-18 List of methods for decontamination work, etc. (Grassland and Orchard)
Details

9.
9.1
Grasslands, Shrub
Stripsdense

10.
Orchard

Decontamination method

9.1.1 Shrub 9.1.1.1 Cutting(dense)9.2
9.2.1 Shrub 9.2.1.1 Cutting
Coarse (coarse)
shrub
9.3
9.3.1
9.3.1.1 Thinning ofThinning Thinning of bamboosofbamboos bamboos
10.1
10.1.1
Orchard Deposits
10.1.2 Grass
10.1.3 Fruittrees

10.1.1.1 Removal of
deposits
10.1.2.1 weeding
10.1.3.1 Stripping ofrough skin10.1.3.2 High Pressure
Water Washing of Bark
10.1.3.3 Fruit tree
pruning

10.1.4 Soil

OutlineWeeds, shrubs and the like are made bychainsaw etc. Those that cannot be conveyed,
accumulated, or packed as they are, should be
cut.
Weeds, shrubs, etc. are cut and shaved by ashawl type grass cutter or the like.
Thinning is done by chain saw, and branch are
cut off.
Same as 1.4.1.1.
Same as 1.4.1.2.
Remove the rough skin around the main trunk
and upper and side portions of the mainbranch.
Wash bark with high pressure water wash.
Prune old branches. Larger side branches are
updated by thinning pruning. Peel off fallen
leaves, deciduous leaves, mulch leaves and soil
with shading etc.
Same as 1.4.1.13.

10.1.3.4 Logging of
troubled trees
10.1.3.5 Rooting ofSame as 1.4.1.14.
troubled trees
10.1.4.1 Topsoil scraping Using backhoe etc., scrape off the topsoil(about 5 cm).
10.1.4.2 Customs
Same as 8.1.2.6.

124

Table 3-19 List of methods for decontamination work, etc. (Forest)
Details

Decontamination method

11.
11.1
11.1.1
Forest Evergre Sedimentenaryorganic
matter

11.1.2
Soil

11.1.3Trees
11.1.4Under
growing
11.1.5
Removalofsediment
residue
11.2
11.2.1
Deciduo Sediment
us trees aryorganic
matter
11.2.2Soil
11.2.3Trees

Outline11.1.1.1 - (1) (2) (3)Removal of depositedorganic matter

Roughly scrape fallen leaves, falling branches etc. witha rake etc. as a guide about 5 cm from the surface.
Remove to the extent that the mineral soil layer is not
exposed. Those that cannot be packed as it is cut.
11.1.1.1- (4) Removal of Rake off fallen leaves, falling branches etc. with rake etc.
sedimentary organicaround 10 cm from the surface as a guide. Remove to thematter (unmanaged area) extent that the mineral soil layer is not exposed. Thosethat cannot be packed as it is cut.
11.1.1.1- (5) Organization The undecomposed cut-off materials left in the forestof cut-off materials
accumulates in the edge of the forest.
11.1.2.1 Preventing reIn the case of removing fallen leaves on steep slopes,
diffusion (soil loading)etc., soil loading will be done at the edge of the forest to
prevent soil outflow.
11.1.2.2 Preventing reWhen removing fallen leaves on steep slopes, etc., use a
diffusion (board fence)large-sized puddle and a small pile (pile) or the like andinstall a plate fence at the edge of the forest.
11.1.3.1 - (1) (2) (3)For evergreen coniferous trees (cedar, cypress, etc.) of
Conifer pruning, cutting III-age class or above, about 5 m from the edge of the
branch collection
forest (1 to 2 rows), cut branches up to about 4 m above
the ground with saws or the like.
11.1.4.1 Undergrowth and Shuffle type grass cutters etc. perform cuttings of undershrub brush
growths, shrubs and the like, and when there are
cuttings, falling branches and the like, collect them on
the edge of the forest.
11.1.5.1 Removal of
Remove places where accumulated organic matter
sediment residue
remains after removing sedimentary organic matter byscraping with rake etc. and remove to the extent that themineral soil layer is not exposed.
11.2.1.1 (1) (2) (3)Removal of sedimentaryorganic matter
11.2.1.2 Removal of
sedimentary organic
matter (unmanaged area)
11.2.2.1 Preventing rediffusion (soil loading)
11.2.2.2 Preventing rediffusion (board fence)
11.2.3.1 Rough Loose
BundleSame as 11.1.1.1- (1) - (3).
Same as 11.1.1.1- (4).
Same as 11.1.2.1.
Same as 11.1.2.2.
The falling branches etc. are bound within a length of 2
m with cords or the like so as to be coarse ribs having a
diameter of about 30 cm.

11.2.411.2.4.1 Undergrowth /Undershrub brushSame as 11.1.4.1.
growing
11.2.511.2.5.1 Removal of
Removal deposits of organic matterof deposits
Same as 11.1.5.1.
of organic
matter
11.3 Woods※ Same as 11.2 deciduous trees.

125Table 3-20 List of methods for decontamination work, etc. (Temporary Storage Sites)

13.
Temporary
Storage
Sites

Details

Decontamination method

13.1
Temporary
Storage
Sites

13.1.113.1.1.1 Storage locatedTemporary groundwater survey
Storage
13.1.1.2 weeding
Sites etc.
13.1.1.3 Cutting of bush(dense)13.1.1.4 Cutting of shrub(coarse)13.1.1.5 - (1) Logging
removal (logging operation)
13.1.1.5 - (2) Logging
removal (root removal)

OutlineEstablish groundwater monitoring hole.
Sampling and analyzing groundwater.
Depending on the condition of the land, do thesame as in 1.4.1.2.
Depending on the condition of the land, do thesame as in 9.1.1.1.
Depending on the situation of the land, do thesame as in 9.2.1.1.
Cut trees according to the condition of the land.

Depending on the situation of the land, use arake dozer etc. to eliminate the root of thelogging tree.
13.1.1.5 - (3) Logging
Depending on the condition of the land, use aremoval (collection operation) rake dozer etc. to accumulate the logging trees.
13.1.1.8 Cover of gravel,
Depending on the situation of installation roadcrushed stoneetc., do it in the same way as 2.4.3.3.
13.1.1.9 - (1) Lower sheet
After finishing logging, removal and(water impermeable sheet)roughening, lay a waterproof sheet sandwichedinstallationfrom above and below with a protective mat
13.1.1.9- (2) Installation of
For protection of the lower sheet, a protective
protective layer
layer of about 10 cm is installed on the upper
part of the lower sheet with mountain sand or
the like.
13.1.1.9 - (3) Install upper
Use a combination of air permeable waterproof
sheet (breathable waterproof sheet and water impermeable sheet for installing
sheet, water impermeable
combustibles, and cover the place where
sheet or light shielding sheet) incombustibles are installed with a water
impermeable sheet or a breathable waterproof
sheet. Consider the landscape and use colors
that are familiar to the surroundings.
13.1.1.10 Invasion water
Set up drainage water collection drainage
collection drainage gutter,grooves for collecting and draining waterdrainage pipe installation
leaking from removed soil and the like. Installcollection drain pipe and lead to leachate watercollection facility.
13.1.1.11 Establishment of
Set for the purpose of temporary storage ofinvasion water collectionleachate and confirming radioactive cesium inequipmentleachate① Installation of surface water collecting
water grooves (grounding grooves): Preventthe inflow of surface water into the storagesites and install the surface water collecting
drainage grooves around the temporary storagesites, etc. as the rainwater discharge in the
13.1.1.12 Installation of
temporary storage place .
surface water collecting② Drainage (corrugated flume) installation:equipment
Place the corrugated flume by human poweraround the temporary storage sites, etc. whereplentiful spring water is difficult to machine
construction.
③ Installation of drainage channel (U typegroove): Place the U - shaped side groove126

13.1.1.14 Capture and settingof stored Contents
13.1.1.15 Side shielding

13.1.1.16 Top shielding

13.1.1.17 End treatment

13.1.1.18 Establishment ofincidental facilities

13.1.1.19 Heat radiation pipe(gas extraction pipe) · Gas
venting port setting
13.1.1.20 Installation ofthermometer
13.1.1.21 Establishment of
supporting soil
13.2
RemovalofTemporary
StorageSites(abovegroundtype)

13.2.1
Removing
the upper
seat

13.2.1.1- (1) Removing upper
sheet (waterproof sheet,composite sheet)
13.2.1.1- (2) Removal ofupper sheet (breathable
waterproof sheet, lightshielding sheet)
13.2.2.1 Removing the lower
seat (waterproof seat)
13.2.2.2 Removing the lower
seat (protective mat)
13.2.3.1 - (1) Packing andrefilling of stored Contents(combustibles)

13.2.2
Removing
the lower
seat
13.2.3
Packing
andRefilling of
Saved
13.2.3.1- (2) Saved Contents
Contents(incombustible)

127

around the temporary storage place etc. withplenty of spring water, install it using a truck
with crane.
Transfer large container bags etc. withremoved soil etc. transported by truck, etc.
using a crane.
Only place where shielding is necessary, placelarge container bags etc. containing
uncontaminated soil (about 1.0 m3/bag) on thesurrounding side.
Only place where shielding is necessary, placea large container bag etc. containing
uncontaminated soil (about 0.5 m3/bag) on the
top side.
To prevent invasion of rainwater and leakageof leachate water, measures are taken such as
welding the upper and lower sheets, andraising the end sheet.
Provide a fence of 1.8 m in height at a distanceof about 4 m from the stored content on theouter circumference of the temporary storagesites or the like. Install bulletin boards, fire
extinguishers, etc.
In the case where the stack height is set toabout 3 m at the place where the combustibles
are installed, one heat radiation pipe (gas ventpipe) is provided at 200 m2.
Install a temperature sensor with a datacollection device at a location of 200 m2 at theplace where combustible materials is installed.
Place a soil bag (about 1.0 m3/bag) containing
uncontaminated soil in the inside of the sideshaded soil, near the center of the bottom.
Remove the upper sheet, cut it, and bag it.

Same as 13.2.1.1.
Remove the lower sheet, cut it, and bag it.
Same as 13.2.2.1.
If there is a possibility of breakage, refill thelarge container bag. Storage contents whose
volume reduction has progressed will bepacked into 2 or 3 bags.
If there is a possibility of breakage, refill thelarge container bag.

Table 3-21 List of methods for decontamination work, etc. (Wastewater treatment)
Details

Decontamination method

15.
15.1.Was 15.1.1
15.1.1.1 Wastewater
Wastewat tewater
Wastewater treatment (precipitationertreatment treatment
treatment)
treatment
15.1.1.2 Packing of
sedimentary soil

OutlineDrain the wastewater collected in thesedimentation facility such as a tank until it
separates from the supernatant water and mud,and let it settle. Confirm that the supernatantwater meets the control value and drain it.
Dry mud generated by the precipitation
sufficiently and pack it in a weather resistant large
container bag or the like. Container shall bewatertight for high water content soil.
Using a crane or the like, install a turbid water
treatment device.

15.1.1.3 - (1) Installationof turbid water treatment
equipment
15.1.1.3 - (2) Removal of Use a crane or the like to remove the turbid
turbid water treatment
water treatment equipment.
equipment
Source：”Common Specifications for Decontamination Works 10th edition”（April 2017 MOE）

128

Provisional Quantification Standards for Decontamination Work, Decontamination, and Guide forQuantitative Calculations in Decontamination WorkTo estimate project costs for decontamination work contracted out by MOE in the Special
Decontamination Areas, the ministry prepared Provisional Quantification Standards for Decontamination
Work in Special Decontamination Areas.
These quantification standards listed the number of workers, the required equipment and materials fordecontamination per unit of area, and the productivity or output for each method and target of
decontamination. Costs were then estimated based on this information.
The standards were prepared by MOE based on the results of “Decontamination Model Projects”
conducted by JAEA in FY2011 as commissioned by the Cabinet Office for demonstration tests oftechnologies necessary for effective implementation of decontamination in high-dose areas, as well as
decontamination carried out by municipalities in Fukushima Prefecture.
The first edition was produced in May 2012 and it was subsequently modified as necessary to suit theactual situation at the decontamination sites, with additions of construction methods and revisions of
productivity measures and so on, and the tenth edition was released in April 2017.
In addition, exceptions were permitted in cases where it was recognized that the estimation standards
were particularly inappropriate or difficult to apply, because target sites varied widely in terms of siting
conditions and environmental conditions and many locations were under special conditions,
In addition, in January 2015, a Guide for Quantitative Calculations in Decontamination Work was
prepared to indicate methods to calculate quantities and methods of measurement when making estimates.
Table 3-22 Revisions of Provisional Quantification Standards for Decontamination Work
EditionDate of revision
Main revision contents
numberInitial release of standards
Original Ed. May 2012
1st Ed.

October 2012

Added scraping of topsoil with suction work vehicle

2nd Ed.

January 2013

3rd Ed.

February 2013

4th Ed.

April 2013

5th Ed.

June 2013

Revision by results of the labor productivity per unit etc., revision ofcommon temporary expenses (maintenance expenses)
Added blasting, scraping of topsoil
Correction of coverage of land surface, preliminary measurements ofradiation data correction work
Common temporary cost (safety expenses) revised. Revised farmland,wastewater treatment. Added tag attachment according to the results oflabor productivity per unit, etc..
Revision of common temporary expenses (maintenance fee)

6th Ed.

September 2013 Partial revision of classification and totalization of common temporary
expenses
Revised the forest. Contents added to Temporary Storage Site construction
work, drainage treatment, transportation of removed soil, etc., crushing ofvegetation and the like, temporary installation, etc. added, partially revised
Addition of summary of measurement of radiation dose at the time of
measures for decontamination, etc., such as playground equipment129

7th Ed.

April 2014

8th Ed.

March 2015

9th Ed.

March 2016

9th Ed.

June 2016(Revised)

10th Ed.

April 2017

Review by the results of labor productivity per unit etc., revised thecorrection value for common temporary cost rate and on-site administrative
expense ratio. Revised method of determining unit price of material.
Addition of compensation extra factor in case of receiving time restriction
Partial revision of protective equipment, etc., transportation, volume
reduction, temporary construction, etc., of school, roads, forests, removed
soil, etc. Newly added contents not covered by expenses
Revised rate and variable values related to calculation formula for on-siteadministrative expense ratio, general administrative expense ratio.
Removal of outdoor equipment, removal of obstacles around housing,cemetery, spraying of greening base material, removal work such as
Temporary Storage Sites, installation and removal of falling prevention
equipment on the roof work, investigation of locally high dose areas,
contaminated soil. Addition of expenses required for measurement ofradioactivity concentration, etc., decontamination management
information, etc.
Wipe, brush wash, lawn cloth, washing with suction type high pressure
water washer, extra high pressure water washing, play equipment, etc.
Removal of bottom sediment, decomposed matter, ground recovery, ridge
restoration, sedimentary organic matter, prevention of redeposition (soilloading), installation of lower sheet / upper sheet, shielding of sidesurface, shielding of upper surface, high pressure water cleaning of ironplates, self-screening at the return of the iron plate, revision of safety
training cost related to Ionizing Radiation Ordinance for Decontamination
Added scope to each step. Partial revision of work procedures.
Wiping off, harvesting tree root, belt conveyor built-in type scraper ·scrape off topsoil using towing scraper bag filling in small sacks small
conveying, waste cutting down - removing root, withdrawing willow,
bamboo., Processing of hindrance trees, expenses required for persons
assisting original safety and health managers are added.
Covering the land surface, deep cultivation, restoring the ground (soil
improvement materials spraying), twice tillage, storage location
groundwater survey, installation of incidental facilities, partial revision ofarmor.
Deleted the leveling, cut and embankment. Storage sites. Add a step bystep walk to underground water survey.
Add reference formula to expenses required for creation of
decontamination management information.
Revised rate, variable value on calculation formula for common temporary
work cost rate and field office expenses rate.
Partial revision of composition of direct work costs, classification ofcommon temporary expenses and contents of quantification.
Revised thermometer installation. High location work (rain gutter),expenses required for persons assisting safety and health managers,
measurement of radioactivity concentrations of precipitated water,
expenses required for preparation of decontamination management
information.
Revised amendment to common temporary cost and field administration
cost rate.
130

Partial revision of classification and quantification of common temporary
expenses.
Addition of accumulation method at small-scale work which completes incommon contents in less than one day.
Source: “Provisional Quantification Standards for Decontamination Work in Special Decontamination Areas”(10th edition) (MOE, April 2017)

As common specifications and quantification standards by MOE are prepared for decontamination workin Special Decontamination Areas, they cannot be applied as directly to Intensive Contamination Survey
Areas (ICSA). Thus, in order to compensate for this, in July 2012 Fukushima Prefecture prepared“Fukushima Prefecture decontamination work common specifications,” and in August 2012, “Fukushima
Prefecture decontamination provisional quantification standards” and presented these to municipalities.
Each municipality generally followed the Prefecture’s common specifications and quantification standards
when ordering work, and for matters not specified therein, they responded by using the common
specifications and quantification standards issued by MOE.
These materials have been appropriately revised according to the implementation status ofdecontamination and the social situation, etc., and as of May, 2017, the common specifications wererevised four times after the initial release, and provisional quantification standards were revised 11 times
after the initial release.

For decontamination work, etc., in Special Decontamination Areas, for estimating labor unit prices,estimated unit labor prices are prescribed for roles such as supervisors, special decontamination workers,
and regular decontamination workers, etc., and these are reviewed each year. Accommodation and otherexpenses are also prescribed, and contracts are modified depending on work achievements.
Also, due to the specialized nature of their work, decontamination workers engaged in Special
Decontamination Areas are paid a special work allowance in accordance with the rules of the National
Personnel Authority (Regulation 9-30, Special Work Allowance), in addition to the unit labor price.

131

Radiation Protection for Workers

The Ministry of Health, Labor and Welfare, on December 22, 2011, as a means of reducing radiation
exposure to workers engaged in decontamination and related work (defined as decontamination workers),
promulgated the Ordinance on Prevention of Ionizing Radiation Hazards at Works to Decontaminate Soiland Wastes Contaminated by Radioactive Materials Resulting from the Great East Japan Earthquake andRelated Works (hereinafter referred to as the “Ionizing Radiation Ordinance for Decontamination”), and it
was enacted on January 1, 2012, the same day as the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials was enacted.
Thereafter, on July 1, 2012, amendments were being made to expand the scope of applicable work toprevent radiation hazards of workers who conduct restoration and reconstruction work.
The Ionizing Radiation Ordinance for Decontamination stipulates: (1) basic principles on radiation
hazards prevention, (2) dose limit and measurement, (3) measures concerning implementation of
decontamination works, (4) prevention of pollution, (5) special education and medical examinations, etc.
The target of application is decontamination work (work for decontamination of soil, waste collection,
handling of specific contaminated soil) or contractors working below a specific dose rate (other than thedecontamination work where there is an average air dose rate exceeding 2.5 μSv/h), and workers employedby those contractors.

The Ministry of Health, Labor and Welfare issued “Guidelines on Prevention of Radiation Hazards forWorkers Engaged in Decontamination Works, etc.” on December 22, 2011 in order for workers to perform
according to the Ionizing Radiation Ordinance for Decontamination, and on June 15, 2012, “Guidelines
on Prevention of Radiation Hazards for Workers Engaged in Works under a Designated Dose Rate” were
formulated and announced.
The guidelines cover topics such as specific protective measures and health examinations.

The radiation dose of the workers engaged in decontamination works are managed by eachdecontamination contractor based on laws and regulations, but since these workers often move between
multiple contractors, it is necessary to centrally manage the radiation dose recorded by each contractor.
For this reason, it is to implement a system equivalent to the “Individual Dose Record Book System”
and “Nuclear Radiation Worker Exposure Dose Registration Management System” for nuclear power
station workers in the decontamination work and on November 15, 2013, “Radiation dose registration andcontrol system for decontamination, etc., workers, etc.” was established for centralized management ofradiation dose of workers for decontamination, etc.
The system is operated by Radiation Workers Registration Center of the Radiation Effects Association(hereinafter referred to as “Registration Center”) and the Registration Center registers radiation doserecords and specific medical examinations of the workers recorded by contractors based on the Act.
132

Expert Committee

In response to the establishment of the Act on Special Measures concerning the Handling ofEnvironment Pollution by Radioactive Materials, 19 meetings of the “Investigative Committee on
Remediation,” aimed at considering matters related to measures for decontamination, etc. of radioactive
substances released by the TEPCO Fukushima Daiichi Nuclear Power Station accident, were held since
between September 14, 2011 and March 2018.
Table 3-23 Members of the Investigative Committee on Remediation (titles omitted)
Name
1

Affiliation
Associate professor, Division for Environment, Health and
Safety, The University of Tokyo
President, Gifu Pharmaceutical University
Director, Center for Material Cycles and Waste Management
Research, National Institute for Environmental Studies, Japan
Professor Emeritus, The University of Tokyo
Professor, School of Law, Waseda University
Professor, Faculty of Nursing, Oita University of Nursing and
Health Sciences
Journalist, Environmental Counselor
Professor Emeritus, The University of Tokyo

Note
17th～19th

15th～19th

Hisaoki Mori

Adviser for Analytical Technique Development, Fukushima
Environmental Safety Center, Sector of Fukushima Researchand Development, Japan Atomic Energy Agency
Vice Chief Director, NPO Radiation Safety Forum
NPO
Professor, Graduate School of Life Sciences, Tohoku
University
Former Professor of Sophia University
Professor, Institute of Law and Social Sciences, Meiji
University Graduate School of Law
Research Group Manager, Fukushima Branch, National
Institute for Environmental Studies, Japan
Director, Department of Radiation Control, Nuclear Fuel
Cycle Engineering Laboratories, Sector of Nuclear Fuel,
Decommissioning and Waste Management Technology
Development, Japan Atomic Energy Agency
Professor, School of Engineering, The Unversity of Tokyo.
Professor, Institute of Engineering, Tokyo University ofAgriculture and Technology
Technical Adviser, Interim Storage Department, Japan
Environmental Storage & Safety Corporation (JESCO)

Yuichi Moriguchi

Professor, School of Engineering, The University of Tokyo.

1st～19th

Takeshi Iimoto

2
3

Takashi Inagaki

4
5
6

Takehiko Ota
Tadashi Otsuka

7
8

Yuko Sakita
Motoyuki Suzuki(Chair)Masahiro Osako

Michiaki Kai

9Minoru Takeishi
10
11
12
13
14

Shunichi Tanaka
Toru Nakashizuka
Osami Nakasugi
Ikufumi Niimi
Seiji Hayashi

15
Sadaaki Furuta
16
17

Hiroaki Furumai
Masaaki Hosomi

18

19

133

1st～19th
1st～19th
5th～19th
1st～19th
17th、19th
1st～19th
1st～19th

1st～6th
4th～19th
1st～19th
1st～19th
4th～19th
1st～14th

4th～19th
1st～19th
1st～19th

No
1st
2nd
Joint
Meeting※
3rd

4th
5th
6th
7th
8th
9th
10th

11th

12th
13th

14th
15th
16th

17th

18th

19th

Table 3-24 Details of meetings of Investigative Committee on Remediation
Date
Main Agenda Contents
September 14, 2011 1. Approaches to decontamination
September 27, 2011 1. Approaches to decontamination
About the Basic Policy for the Act on Special Measures concerning the
October 10, 2011
Handling of Environment Pollution by Radioactive Materials* Disaster Waste Safety Assessment Committee / Joint Review with
Committee on Environmental Remediation (1st)
11th December 2011 1. Basic Policy Based on the Act on Special Measures
2. Road Map for Construction of Interim Storage Facility
3. About the enforcement regulation (draft) of the Act on Special
Measures
4. Guidelines on decontamination (draft)
5. Regarding national government direct work in Fukushima
1. Approaches to forest decontamination
July 9, 2012
2. On the progress of decontamination (report)
1. Approaches to forest decontamination
June 31, 2012
1. About hearing from stakeholders
August 29, 2012
2. Study on the approaches to forest decontamination
September 19, 2012 1. Study on the approaches to forest decontamination
1. About Decontamination Guidelines
April 22, 2013
2. Recent decontamination efforts
1. Progress of decontamination
August 27, 2013
2. Response etc. after decontamination
3. Regarding the consolidation of knowledge on forest decontamination
1. Interim report (preliminary report) of the decontamination model
December 26, 2013
projects in Areas where Returning is Difficult
2. Current supplemental decontamination
3. About the evaluation etc. concerning the goals of the basic policy
4. Recent decontamination efforts
1. Supplemental decontamination for the time being
20th March 2014
2. On the results of forest model project
3. Study on the behavior of radioactive cesium in landfill of the removedsoil
4. Recent Decontamination Initiatives
1. Response to rivers, lakes, etc.
August 22, 2014
2. About recent decontamination efforts
1. Report and issues on decontamination progress
January 30, 2015
2. Storage condition of removed soil etc. in Intensive Contamination
Survey Areas (ICSA)
3. Estimation of radiation dose in recreational activities at waterside
1. Progress of decontamination
March 19, 2015
2. Storage condition in Temporary Storage Sites
3. About knowledge on radioactive materials in forest
1. Management of Temporary Storage Sites
15th June 2015
2. Demonstration Project of Forest (Interim Report)
3. Estimation of radiation dose in recreational activities in forest
1. Concept on supplemental decontamination
December 21, 2015
2. Measures to deal with radioactive materials in forests
3. Response to the case of discharge of removed soil by Kanto / Tohoku
torrential rain in September 2015
1. Removal soil storage in ICSA outside of Fukushima Prefecture
December 20,2016
2. About management of Temporary Storage Sites
3. Progress status of measures to deal with radioactive materials inforests
1. About restoration of Temporary Storage Sites
December 27, 2017
2. Study on disposal method of removed soil outside Fukushima
Prefecture
3. Measures to deal with radioactive materials in forests
1. Deliberation on guidelines (draft) on specific methods for land
March 13, 2018
restoration of Temporary Storage Sites
2. Report on the progress of demonstration projects etc. on
decontamination and treatment of removed soil

134

The Ministry of Agriculture, Forestry and Fisheries established the “Examination Committee on
Decontamination Countermeasures for Farmland” consisting of experts. It held a field study meeting inJanuary 2012, review conferences four times to August 2012, and working group meetings four times, andprepared the aforementioned “Technical Document for Decontamination of Farmland.” 43
Also, to consider measures to deal with radioactive materials in reservoirs, the “Study meeting on
measures to deal with radioactive materials in reservoirs” was held starting in December 2015 and it
prepared the “Manual for measures to deal with radioactive materials in irrigation ponds.”

MAFF “Technical Document for Decontamination of Farmland (Part I, Volume for survey anddesign“(February 2013)

43

135

3.5. Policies Formulated After the Start of Decontamination
After performing whole area decontamination, there were some areas confirmed where thedecontamination effect was not maintained. As a response, MOE issued a document on “Approaches tosupplemental decontamination” (draft) at the 16th meeting of the Committee on Environmental
Remediation, held on December 21, 2015, stating the following: ① Whole area decontamination is not
implemented twice in principle, however, if it is confirmed there is an area where decontamination effectis not maintained, ascertain the cause according to the situation of each site as far as possible, and judging
rationality and feasibility, supplemental decontamination is to be carried out. ② If it is confirmed that
additional annual radiation dose of 1 mSv/y or less will be predicted as the government’s long-term goal,
supplemental decontamination will not be carried out. ③ In the Habitation Restricted Areas, if even after
properly performing the decontamination based on the decontamination implementation plan it cannot be
said that it surely fulfills the annual accumulated dose of 20 mSv/y or less, which is the requirement forlifting evacuation orders within the residential land, the source location is to be defined, and without
waiting for supplemental monitoring immediately after whole area decontamination, supplemental
decontamination is to be implemented depending on the situation at each site.
Further, the judgment of the implementation for ③, radiation dose survey will be intensively conducted
if the air dose rate average of residential land exceeds 1 μSv/h, and if it is confirmed that it may exceed
3.8 μSv/h within a certain range in the land, the supplemental decontamination method would beconsidered for the relevant locations.
Slope Surface
Scraping away the topsoil

Slope (End of Slope)

Removal of organic sedimentand soil, etc.

Under Planting
Removal of topsoil / Covering

Exit of Rainwater Gutters

Removal of gravel and crushedstonesBoundary between paved
and unpaved surfaces

Traces of rain

Removal of topsoil / Covering

Removal of topsoil / Covering

Note: Blue part, blue text: Standard supplemental decontamination technique
Red part, red text: Supplemental decontamination method in old habitation restricted area
Figure 3-18 Image of supplemental decontamination method
Source: Documents from MOE “The 16th Investigative Committee on Remediation” (December 21, 2015)136Forests
Regarding decontamination of forests, it was indicated in the “Decontamination Guidelines” that
sedimentary organic matter such as fallen leaves shall be removed within an effective range of 20 m fromthe edge of the forest in order to reduce the radiation dose in the living environment of residents who own
forests in the surroundings.
After that, MOE announced “Current arrangements on forest decontamination methods” on September
25, 2012 in light of discussions at the Investigative Committee on Remediation, stipulating that forest
decontamination is to be prioritized for the forests neighboring residential houses; that for forests that have
daily access by workers and so on decontamination methods should be considered based upon how theforests are used; and that for other cases of forests, methods shall be decided after investigation and study
in future.
In addition, MOE announced “Future directions for forests” on August 27, 2013 based on the findings
clarified so far, and showed the direction of future forest decontamination for each area shown in the“Current arrangements on forest decontamination methods.”
Thereafter, opinions were expressed that decontamination based only on initiatives under the Act on
Special Measures concerning the Handling of Environment Pollution by Radioactive Materials would beinsufficient to regenerate Fukushima forests and forestry. Thus, starting in February 2016, led by the
Reconstruction Agency, a “Project Team of Related Ministries and Agencies for Fukushima Forests andForestry Restoration” was launched and compiled a report on “Comprehensive Efforts towards the
Restoration of Fukushima Forests and Forestry.” A project based on this comprehensive approach, the“Satoyama restoration model project” has been implemented, promoting efforts for decontamination andforest improvement in 14 model districts.

137

Image里山再生モデル事業
of Satoyama Restoration Model
Projects
イメージ
The
acheivements.in comprehensive promotion of efforts to promote satoyama restoration
地域の要望を踏まえ選定したモデル地区において、里山再生を進めるための取組を総合的に推進inthe model areas selected based on regional needs, would be reflected in the
し、その成果を、的確な対策の実施に反映。
implementationof practical measures.
②Decontamination② 広場の除染of open space① Developing theradiationdose map① 放射線量マップの作成
Measurement of
個人線量の測定
individual dose

②Decontamination of②log
ほだ場の除染bed
laying yard
②Decontamination② 散策道の除染of trails③Management③ 広葉樹林の整備
of broadleaf
forest③Management
竹林の整備
of ③
bambooforestSatoyama
里山

公共施設へ木質バイオマス④ ④Newwoody biomass boiler
for publicボイラーを新設
facilities

Figure 3-19 Satoyama Restoration Model Projects
Source: Reconstruction Agency, MAFF, MOE, “Comprehensive Efforts towards the Restoration of
Fukushima’s Forests and Forestry” (March 9, 2016)

138

Rivers, Lakes and Reservoirs
Regarding rivers and lakes, as water provides a shielding effect and sediment flows in from the land area
and is transported within a watershed, the general approach was to have regular monitoring, and to respondbased on knowledge accumulated through studies and research. However, on August 22, 2014 MOE
announced a “Summary of future approaches on measures for rivers and lakes, etc.” to articulate its basic
approaches. For example, it states: “Decontamination will be implemented as needed, in cases where thewater dries up and the water shielding effect cannot be expected, where the air dose rate is high due to theaccumulation of radioactive cesium and the location is believed to correspond to the living area where
there are many activities of the general public.”
Regarding reservoirs, “Measures to deal with radioactive materials in reservoirs” were announced on
the same date, stating that MOE is to conduct decontamination measures for reducing the air dose in living
areas, based on the Act on Special Measures concerning the Handling of Environment Pollution byRadioactive Materials, while measures to restart farming and restore agriculture are to be implemented by
Fukushima Prefecture and municipalities, etc., using Fukushima Revitalization Acceleration Grants.

Conduct
decontamination asnecessary as a part ofliving space at thereservoir existing in theliving space such as
resident and park, when
the air dose rate
significantly increases as
the water dries for acertain period of time.
The MAFF implemented
the measures to resume
farming and to restore
agriculture.

Decontamination is not
carried out since it has theeffect of shielding water andthe contribution of the rightof life to the air dose rate issmall.

Dam
Lake

Reservoir

River

Continue monitoring

Riverbed and conduct investigation andFarmlandContinual measures suchas food inspection andwater quality inspection
at the water purification
plant are implemented

Conduct
decontamination asnecessary after
comparing the air dose
rate with thesurrounding living
space at the public
facilities using
riverbeds such as
lectures and grands.

Drink water
Foods

research from a long-term
perspective to grasp theenvironmental dynamics ofradioactive cesium throughout
the basin.

Figure 3-20 Future directions in rivers, lakes, etc.
Source: Ministry of Agriculture, Forestry and Fisheries,” On the countermeasures for the radioactive
materials in the reservoirs, etc. ”Investigative Committee on Remediation” (August 22, 2014)139

Commentary Research on the behavior of radioactive substances in rivers
As the result of surveys on rivers flowing in Fukushima Prefecture, it was revealed that radioactive cesium
concentrations in rivers continued to decrease after the disaster (left figure below). Also, as a result ofinvestigating changes after completion of decontamination on riverbank areas where the general public is
active, it was confirmed that there is no significant change in air dose rates when areas are flooded by heavy
rains (right figure below)
After Decontamination

After flood

懸濁態放射性セシウム濃度[Bq/kg]

10000010000

Decontamination
1000

Flood

100
0

1

2

3

4

5

6

7

事故からの経過年数
Years after
the accident

beforeflood

Changes in radioactive cesium
concentrations in suspended state in
Abukuma River

after
flood

Sediment half yearbankdecontami decontami after
nation decontami
nationnation

after
flood

one yearafter
decontami
nationChanges in air dose rates after
decontamination of riverbank
areas

Source：Fukushima Prefectural Centre for Environmental Creation

The “Basic Policy for Emergency Response on Decontamination Work” (August 26, 2011 Nuclear
Emergency Response Headquarters) states that in areas where the additional annual radiation dose
significantly exceeds 20 mSv/y, the national government conducts decontamination model projects andestablishes policies to ensure the safety of decontamination technologies and workers.
The MOE carried out Decontamination Model Projects in Areas where Returning is Difficult starting in
October 2013 and announced the results on June 10, 2014.44
In addition, early decontamination was carried out around JR station areas, roads, and areas in contact
with Habitation Restricted Areas, and for wide area infrastructure, decontamination was carried out underthe Act on Special Measures concerning the Handling of Environment Pollution by Radioactive Materials.
The document “For Accelerating the Reconstruction of Fukushima From the Nuclear Disaster” (Nuclear
Emergency Response Headquarters on December 20, 2013), states that MOE is to consider projections forradiation doses and reconstruction scenarios based on the result of decontamination model projects, etc.
MOE, “Report on the Results of Model Demonstration Projects in Areas where Returning is Difficult” (June10, 2014).

44

140

Later, on August 31, 2016, “Approach on the handling of Areas where Returning is Difficult” wasannounced from the Nuclear Emergency Response Headquarters. It presented the following policies, andfor Areas where Returning is Difficult, it was the policy to set up reconstruction centers and to integrate
decontamination along with infrastructure development.
· In Areas Where Returning is Difficult, depending on the achievements of each municipality,
establish and develop reconstruction centers that will aim to have the evacuation orders liftedbased on a reduction in dose, and make residence possible within about five years.
· In addition, decontamination and other measures are conducted so that people can safely travel or
use the main roads constituting the wide area network, starting with National Highway No. 6(including connecting roads and additional interchanges on Joban Expressway).
· Municipalities formulate plans to develop Specified Reconstruction and Revitalization Bases, etc.,
in consultation with the prefectural government, and the national government approves them.
· As for maintenance, decontamination and infrastructure development are integrated in an efficient。

manner.

Based on the above policy, the Cabinet decided “Basic Guidelines for Accelerating Fukushima
Reconstruction from Nuclear Disaster” on December 10, 2016, and on May 19, 2017 the “Act on Partial
Revision of the Act on Special Measures for the Reconstruction and Revitalization of Fukushima” (ActNo. 25 of 2012) was promulgated and entered into force, and a planning system was established to promote
the reconstruction and revitalization of Specified Reconstruction and Revitalization Bases.
<Planning system to promote Specified Reconstruction and Revitalization Bases>
Heads of municipalities established plans to promote construction of the “Specified Reconstruction
and Revitalization Bases” aiming to lift evacuation orders and allow returnees, etc., to live in Areas
where Returning is Difficult. When the plan is accredited by the Prime Minister, the following
systems etc. shall be made available in the area.
· The national government implements decontamination and waste disposal treatment based on thequalification plan (cost burdened by the government).
· Business agency takes over infrastructure project by the government, such as construction of newroads.
· Special provision for taxation related to capital investment, etc., necessary for restarting businessby the disaster victims and promotion of local establishment of new business operators· The “Specified Reconstruction and Revitalization Base development system of one housing
complex” is applied to construct a new urban area by outright acquisition method.

141

Outline of Interim Storage Facility
ISF is to be developed based on the Act on Special Measures concerning the Handling of Environment
Pollution by Radioactive Materials in order to safely and intensively manage and store soil containing
radioactive materials generated by decontamination work in Fukushima as well as designated waste withradioactivity concentration of more than 100,000 Bq/kg stored in the Prefecture until its final disposal. The
amount of removed soil within Fukushima Prefecture (as of July 2013) was estimated to be 16 million to
22 million m3 even after volume reduction (incineration of combustibles), with a volume about 13 to 18
times that of the Tokyo Dome (Figure 3-21) (Figure 3-21).
The MOE is proceeding with the construction of ISF as well as the ongoing transporting of the removed
soil. The “Five Year Ad-hoc Policy” concerning ISF publicly announced in March 2016 states that 5
million to 12.5 million m3 of removed soil would be transported to the ISF by the year 2020, the last yearof the “Reconstruction and Revitalization Period.” According to this policy, the aim is to transport to ISF
at least an amount equivalent to the removed soil currently stored on-site at schools and residential houses(estimated to be 1.8 million m3 as of the time announced), and to make every effort for land acquisition,
aiming to transport to ISF an amount equivalent to the removed soil that is along main roads (3 million to
5 million m3).
Status of land acquisition for Interim Storage Facility
The area of planned sites for Interim Storage Facility is about 1,600 ha, and 2,360 persons are registeredin land registries within that area. As of February 2017, steady progress had been made, as the contact
information of landowners was known for about 1,220 ha, the area surveyed was about 1,170 ha, the areawith contracts in place was about 844 ha (about 52.8% of the total), and contracts had been signed with
1,380 persons (about 58.5% of the total). Regarding land acquisition, MOE believes that it is important tohave public understanding of the Interim Storage Facility project, as well as a relationship of mutual trustwith landowners, and will continue to work while providing sufficient explanations to the landowners.
Status of transport to Interim Storage Facility
710,000 m3 of removed soil had been transported to ISF by the end of February 2017. For the futuretransport, the Transportation Implementation Plan will be updated and traffic measures such as
improvement of pavement thickness was implemented for necessary spots on transport routes to ISF. MOE
will continue to carry out transportation considering safety and securement.
Publication of 2018 project policy
In November 2017, the “Policy of the Interim Storage Facility Project in FY2018” described policies
including (1) the amount transported in FY2018 shall be about 1.8 million m3, which is the maximum
value of the “Five Year Ad-hoc Policy” and (2) in FY2019, to the extent possible aim at the maximum
possible (4 million m3). In addition, the current outlook for the development of Interim Storage Facility
was released (Figure 3-22).
142

Efforts toward volume reduction and recycling
With regard to removed soil within Fukushima Prefecture, the necessary measures are to be taken tocomplete the final disposal outside of Fukushima Prefecture within 30 years after the start of the Interim
Storage Facility. For the realization of final disposal of removed soil, etc., outside of Fukushima Prefecture,
it is important to treat the removed soil with volume reduction technologies in order to increase to theextent possible the amount of soil recycled, and attempt to reduce the final disposal amount. To do so, in
April 2016, the “Volume reduction and recycling utilization technology development strategy” and “roadmap” were formulated, as a medium to long-term policy concerning the development of volume reduction
technologies for the time being for final disposal outside the prefecture and the recycling of removed soil,
etc. In addition, the “Basic concept concerning the safe use of recycled removed soil” was formulated inJune that same year as a guideline for step-by-step progress with the recycling of removed soil.
In line with these, a test embankment was constructed using removed soil at a Temporary Storage Site
in Minamisoma City in December 2016, and a monitoring survey of the air dose rate, etc., was carried out.
It found that no large fluctuation of the air dose rate was observed, and no radioactivity concentration of
the seepage water of the embankment was detected, which confirmed a certain degree of safety forrecycling.

Estimated volume of generated soil, etc. fromdecontamination works (in case of 22 million m3)

Figure 3-21 Forecast of total quantity contaminated soil and waste generated

143

(November, 2017)

Present Image of Facility Management

Reception/Separation
facility
Soil storage
facility

Soil storage
facility
Reception/Separation
facility
Soil storage
facility

Temporary
Incineration facility
and Ash Treatment
Facility
Waste storage
facility

Futaba Town

Waste storage
facility
Temporary
Incineration facility
and related facility

Okuma Town

Reception/Separation
facility
Soil storage
facility
Soil storage
facility
Reception/Separation
facility

Soil storage
facility
Reception/Separation
facility

Reception/Separation
facility(2 facilities)
Soil storage
facility

Reception/Separation
facility
Soil storage
facility

New construction site
Started/Prepared Site(including scheduledconstruction site forthis year)
Transportation routes

Figure 3-22 Current outlook for development of Interim Storage Facility
Source: MOE “Policy of the Interim Storage Facility Project in 2018” (November 2017)144