4． Management of decontamination projects
4.1. Flow of the Decontamination Process
The basic flow of the decontamination process is shown in Figure 4-1.
Targets for decontamination extend over a wide range, including soil, houses, roads, fields
and forests (only within living spaces). Decontamination was first focused on buildings andresidential areas necessary for the protection of human health. Therefore, the first thing to do
was to investigate ownership of land plots and buildings.
The next things to do were to measure radiation dose and to survey the state of buildings
and other structures in advance of the decontamination work, because the attachment
conditions of radioactive substances differ depending on the material to which they areattached. Based on the investigation results, decontamination plans were prepared for eachland plot and building that would ensure the most effective methods would be used.
The decontamination work was moved forward by getting the understanding of land andbuilding owners for field surveys, their confirmation of decontamination methods, and finally
their consent for conducting the decontamination work. More specifically, their consent toenter the land was obtained, the decontamination plans were explained (to obtain the consent
to conduct the decontamination work and to report on commencement), and the results of thedecontamination work and other related things were reported.
After the completion of the decontamination work, the effectiveness of the decontamination
was checked, and this monitoring was continued to check that the radiation dose has been
sufficiently reduced allowing the residents to return.

Flow of decontamination process
Survey of land and buildings(consent of landowners, etc.>)

Interaction
with client
Consent of accessto the site

Pre-project radiation monitoring andsurvey of state of buildings etc.
Creation of decontamination plans for eachland/building

Decontamination work

Opinions on
decontamination,
notice ofcommencement

Post-project radiation monitoring
Report of results
Completion, ongoing monitoring

Figure 4-1 Flow of decontamination process92.

92Source: Decontamination Information(http://josen.env.go.jp/about/method_necessity/method_area.html)

179

4.2. Contents of Decontamination Work
This section describes the specific contents actually implemented by the Ministry of theEnvironment (MOE) and decontamination business operators for decontamination andrelated works in the Special Decontamination Areas as ordered by the MOE.
(1) Knowing the air dose rates by detailed monitoring(2) Issuing of decontamination work orders and related matters by the ordering party(MOE)(3) Implementing decontamination work by decontamination business operators(4) Securing necessary resources by decontamination business operators

4.2.1. Knowing the Air Dose Rates by Detailed Monitoring
The MOE carried out extensive monitoring between November 2011 and April 2012 in orderto produce detailed air dose rate distribution charts and to prepare for formulating
decontamination plans focusing on residential areas in the area that were subject todecontamination work by the national government (Special Decontamination Areas) underthe Act on Special Measures Concerning the Handling of Environmental Pollution byRadioactive Materials Discharged by the Nuclear Power Station Accident Associated with the
Tohoku District Off the Pacific Ocean Earthquake That Occurred on 11 March, 2011 (“Act on
Special Measures” in this report).

（1） Summary of implementation
The monitoring program was implemented under the direction and supervision of the MOE.
The monitoring was carried out by the Japan Atomic Energy Agency (JAEA) mobile
monitoring vehicles and drone helicopters, and by Tokyo Electric Power Co., Inc. (TEPCO)
employees making hand-carry measurements over a 100 m grid as well as using mobile
monitoring vehicles (TEPCO cooperated at the request of the MOE on these extensive
monitoring activities), in the restricted area and the deliberate evacuation area where the air
dose rates were 20 mSv and 50 mSv per year, respectively, as well as areas where the air dose
rates were lower (1 mSv, 5 mSv and 10 mSv per year).
More specifically, based on the monitoring data in the restricted area and deliberate
evacuation areas published by the Cabinet Office and the Ministry of Education, Culture,
Sports, Science and Technology (MEXT), the areas for detailed monitoring were selected on a
2 km x 2 km grid in each area corresponding to respective radiation dose ranges.
Consideration was given to the distribution of residential areas in determining the extent ofareas for detailed monitoring. Each section of 2 km x 2 km was then in principle zoned in a
100 m meshed grid, in order to gain a more extensive understanding of the air dose rate
distribution.
Eleven municipalities were monitored: Tamura City, Minamisoma City, Kawamata Town,
Naraha Town, Tomioka Town, Kawauchi Village, Okuma Town, Futaba City, Namie Town,
Katsurao Village and Iitate Village.

180

Area

Table 4-1 Summary of detailed monitoring93
Implementation period

MethodNeighboring regionof 50mSv per year

Dec. 15, 2011 to Dec. 21
Jan. 6, 2012 to Jan. 16

Monitoring by monitoring car
and measuring personnel

Neighboring regionof 20mSv per year

Nov. 7, 2011 to Nov. 24

Monitoring by monitoring car
and monitoring personnel

Neighboring regionof 10mSv per year

Feb. 17, 2012 to Feb. 28
Apr. 6, 2012 to Apr. 12

Monitoring by monitoring car
and monitoring personnel

Neighboring regionof 5mSv per year
Neighboring regionof 1mSv per year

Jan. 6, 2012 to Mar. 3

Monitoringbyunmannedhelicopter
Monitoring by monitoring car

Feb. 17, 2012 to Feb. 28（2） Measurement methods
In order to efficiently understand the radiation data at each point of the 100 m mesh grid,
while using existing data, additional data were collected by monitoring vehicles(measurement instruments were mounted on cars), aerial monitoring (measurement
instruments were mounted on drone helicopters) and persons walking through areas withhand-carry instruments.
The basic policy followed in selecting monitoring methods was to use mobile monitoringvehicles for the urban and residential areas and suburban roads, and to use drone helicoptersor rely on persons walking for schools, parks and fields with no roads.

（3） Results of detailed monitoring
Detailed monitoring clarified the distributions of air dose rates, mainly in residential areas,
and they were classified into three ranges: below 20 mSv per year (3.8 μSv/h), between 20 and
50 mSv per year (9.5 μSv/h), and above 50mSv per year.

93Source: Decontamination Information(http://josen.env.go.jp/about/method_necessity/method_area_monitoring.html )181

Figure 4-2 General map of the detailed monitoring results94.

94Source: Decontamination Information (http://josen.env.go.jp/area/pdf/monitaring_zentai_final.pdf)

1824.2.2. Decontamination Work Ordered by the Ordering Party (MOE)
Decontamination and related works in the Special Decontamination Areas ordered by the
MOE followed the government procurement procedures, as in ordinary public works projects:
relevant public notices were issued for procurement based on the specifications,decontamination business operators were selected and the orders were issued. Since many of
the individual activities of decontamination work were similar to those in ordinary public
works projects, the ordering framework for ordinary public works was applied with
supplementary additions of matters specific to decontamination work.
The MOE presented common specifications for decontamination and related works for theSpecial Decontamination Areas (hereafter “Common Specifications”), and formulated common
decontamination work specifications to ensure that the details of work agreements and design
documents were interpreted and implemented in a uniform manner, and that, by setting out
other necessary matters, the agreements were properly executed. In addition, special
specifications setting out specific technical requirements (hereafter “Special Specifications”)
were formulated on an individual project basis for the actual conditions of the area or site
subject to decontamination, and individual decontamination projects were carried out basedon these Common Specifications and Special Specifications.
It would have taken a long time to commence decontamination projects upon acquisition ofconsent to the decontamination works and the decontamination methods for each object to be
decontaminated from the stakeholders such as land owners, as is practiced in ordinary public
works projects. Therefore, the MOE placed an order for decontamination and related works in
the Special Decontamination Areas before fixing everything. By using the prior survey results,
the order was made based on the estimated decontamination area sizes and number ofdecontamination target buildings for each type of target object and decontamination method.
The quotes could be fixed after the decontamination methods for each target object were fixed
and the decontamination area sizes as well as the number of buildings to decontaminate were
fixed in the actual project operation. The MOE and decontamination business operatorsconcluded an agreement to adopt a method of calculating payments based on work unit prices
and the actual volume of work completed. For the actual operation, the MOE formulated
provisional estimation standards of decontamination and related works in the Special
Decontamination Areas (hereafter “Provisional Estimation Standards”), in which the unit
prices for the work are defined in advance.
The following shows the Common Specifications, Special Specifications, Provisional
Estimation Standards, and ordering system and procedures for decontamination and related
works in the Special Decontamination Areas as ordered by the MOE.

1）Common Specifications
The Common Specifications describe general parts of technical requirements and work
contents which are needed in implementing the work such as the work sequence, qualities ofmaterials to be used, quantities, finished qualities, work methods, etc.
The MOE developed the Common Specifications by incorporating new decontamination
work methods based on work experiences and the latest version of the Common Specifications(7th Edition) was issued in April 2014.
Tables 4-2 to 4-6 list the contents of Chapters 1 to 5 of the Common Specifications (7thEdition).

183

Table 4-2 Contents of “Chapter 1 General Provisions” in the Common Specifications (7thEdition)95
SectionParagraph
1-1-1 Application
Section 1 General Items
1-1-2 Definition of terms
1-1-3 Works on Special Decontamination Areas
1-1-4 Radiation work leader, operation leader
1-1-5 Check with design document
1-1-6 Breakdown of contract
1-1-7 Schedule
1-1-8 Implementing plan
1-1-9 Registelation of work performance information
1-1-10 Supervision personnel
1-1-11 Commissioned supervisor
1-1-12 Usage of work land, etc.
1-1-13 Start of work
1-1-14 Subcontract of work
1-1-15 Ledger of working structure
1-1-16 Cooperation of mutual contractor
1-1-17 Cooperation for investigation and test
1-1-18 Temporary halt of work
1-1-19 Revision of schedule
1-1-20 Examination committee for design change
1-1-21 Supplied material and lent itams
1-1-22 List of decontamination worker and identification card
1-1-23 Provision of allowance
1-1-24 Entrance into land and building
1-1-25 Generated materials at construction site
1-1-26 Investigation (including confirmation) and witness bysupervision staff
1-1-27 Investigation of work completion
1-1-28 Investigations of previously finished portion
1-1-29 Technical investigation
1-1-30 Execution management
1-1-31 Performance report
1-1-32 Management of decontamination workers
1-1-33 Security during work
1-1-34 Security measurement for ionizing radiation
1-1-35 Cleanup
1-1-36 Accident report
1-1-37 Environment measurement
1-1-38 Coordination with peripheral residents
1-1-39 Care for cultural property
1-1-40 Management of traffic safety
1-1-41 Compliance for laws and regulations

Source: Decontamination Project Common Specifications (7th Edition)(http://tohoku.env.go.jp/fukushima/to_2014/data/0410ba.pdf) (Table 4-3 to Table 4-6 have the same source.)
95

184

Section

Paragraph
1-1-42 Procedures to public office
1-1-43 Revision of work duration and work time
1-1-44 Submitted document
1-1-45 Damage by inevitable force
1-1-46 Patent, etc.
1-1-47 Insurance and compensation for accident
1-1-48 Measure for specific case
1-1-49 Confidentiality obligation
1-1-50 Handling of individual information
1-1-51 Securement of information security

Table 4-3 Contents of “Chapter 2 Work materials” in the Common Specifications (7th Edition)
SectionParagraph
Section 1 Application－
Section 2 Quality and test of work material (including －confirmation)
Section 3 Work material
2-3-1 Large sandbag, etc.

Table 4-4 Contents of “Chapter 3 Decontamination” in the Common Specifications (7thEdition)SectionParagraph
Section 1 Common items
3-1-1 Test of construction
1. Residents, etc.
Section 2 Explanation of decontamination
2. School
method
3. Park (small)
4. Park (large)
5. Large facility
6. Road
7. Slope
8. Farmland
9. Grass field, Lawn
10. Orchard
11. Forest
12. Deleted
13. Temporary storage area, etc.
14. Deleted
15. Effluent processing

185

Table 4-5 Contents of “Chapter 4 Work management” in the Common Specifications (7thEdition)SectionParagraph
4-1-1 Common items
4-1-2 Radiation measurement at
measures for decontamination work
4-1-3 Security, management and transfer
of temporary storage area, etc.
4-2-1 Management of storage area after
completion of storage

Section 1 Measurement of radiation dose

Section 2 Management of temporary storage
area, etc.
Section 3 Confirmation of construction result
Section 4 Confirmation investigation

Section 5 Handling of removed soil, etc.

4-3-1 Confirmation of construction resultwith decontamination measures on
residential district
4-4-1 General rule
4-4-2 Decision of management value
4-4-3 Implementation of confirmation
investigation
4-5-1 Discretion
4-5-2 Dose measurement
4-5-3 Grant of identification number andtag, etc.
4-5-4 Development of storage ledger

Table 4-6 Contents of “Chapter 5 Reporting” in the Common Specifications (7th Edition)
SectionParagraph
5-1-1 Submittal document
Section 1 Report and submittal document
5-1-2 decontamination management
information
5-1-3 Report of decontamination result on
residential district, etc.
5-2-1 Report of decontamination result on
Section 2 Report of decontamination result toresidential district, etc. to related persons
related persos（2） Special Specifications
The Special Specifications supplement the Common Specifications and specify details or
specific technical requirements in individual decontamination tasks, considering the actual
situations of the area or site to be decontaminated. The Special Specifications were presented
as a supplement to the Common Specifications with specific notes in the procurement forindividual decontamination tasks.

（3） Provisional Estimation Standards
The Provisional Estimation Standards was developed for estimating costs fordecontamination and related works in the Special Decontamination Areas ordered by the
MOE. The Provisional Estimation Standards may be excluded from application, when theirapplication is extremely inadequate or difficult because of diverse conditions of the site or thenatural environment.
186

Estimation

The Provisional Estimation Standards specify materials and equipment needed, workload,
unit prices of machinery, workforces, expenses, etc. required for implementing thedecontamination and related works. The construction cost can be calculated based on these
specifications.
The first edition was developed in May 2012. Thereafter the Provisional Estimation
Standards were revised to match the actual site situations based on experiences indecontamination projects, e.g., incorporating new work methods. In April 2014, the 7th Edition
was put into effect (Provisional Estimation Standards (7th Edition)).

Site investigation

Investigation of geography, geology, meteorology, water quality, powered
water supply, traffic condition, circumstances, existing structure(underground buried object), site material at construction site

Development ofdesign drawing

Development of basic design drawing and various structure drawing, such asplan chart, cross section drawing, lateral profile, and standard scale drawing

Quantity calculation

Calculation of soil volume, calculation of material, etc. calculation of
structure

Development ofconstruction plan

Selection of construction method, setting of construction term, selection of
construction machinery type, standard and machine combination, selection of
temporary work and machine

Development ofspecial note
specification

Especially necessary items which are not written in Common Specifications
and necessary items on contract which cannot be described on drawing

Decision of various
unit priceDecision of material unit price, labor unit price, and machinery depreciation,
etc.

Estimation of direct
construction cost

Decision of days per unit work, development of unit price list and breakdown
document estimation of direct construction cost

Development ofschedule

Decision of work sequence, estimation of working days from work amountper day, adding rainy weather, Sunday, holiday consideration, develop
schedule with network or bar-chart

Estimation ofcommon temporary
cost

Estimation of transportation cost, preparation cost, cost to prevent project loss,
safety cost, service cost, technical management cost, and maintenance cost

Estimation of site management cost
Estimation of general management cost, etc.
Audit of design
document

Comprehensive check of design document

Summary of design
document

Summary of design document, design drawing, and specification, etc.

Decision of
estimated cost

Contract officer shall decide estimated cost.

Figure 4-3 Construction cost estimation flow96.
The Provisional Estimation Standards specify workload needed for each object to be
decontaminated and the decontamination method in terms of workforce, quantities generated
for removal, and materials and equipment required per unit area for decontamination tasks.
An example of workload is shown below for the work of removing sediments from residential
area roofs and the like (other than concrete roofs). It specifies 0.50 work supervisor and 3.20
decontamination workers are required per 1,300m2 area to be decontaminated.
The workload developed in the Special Specifications by the MOE was based on two types ofresults: the results of the “decontamination model projects” performed by the JAEA
96Source: Decontamination Construction Project Management Standards in the Special Decontamination

Areas (7th Edition) (http://tohoku.env.go.jp/fukushima/to_2014/data/0410aa.pdf) (Figure 4-4 has the same
source.)187

Fukushima Technology Headquarters in JFY 2011 under consignment by the Cabinet Officefor verifying decontamination techniques required for effective decontamination in high-doseareas; and the results of independent decontamination projects performed by municipalities
in Fukushima Prefecture.
Title

Standard

Unit

QuantityWork supervisor

Person0.50

Decontamination worker

Person3.20

Summary●Labor cost●Material cost
Large sandbag

Bag

Later

●Miscellaneous cost
Miscellaneous cost%

1.0

1% of labor cost

Total
Miscellaneous cost include pitchfork, etc. and added above percentage to labor cost.

Figure 4-4 Example of workload.
(Sediment removal from a roof in a residential area (roof material other than concrete))
It is difficult to show simply the cost of decontamination work, since it is affected by various
factors such as: the size/extent of houses/land; materials of roofs and walls; extent andconditions of gardens (presence of garden trees, and others); availability of aerial lift (bucket
crane) work vehicles; necessity to install temporary scaffolds; necessity to replace gravel;necessity to decontaminate surrounding forests; transfer of removed soil and the like to thetemporary storage site, etc.
For ordinary residences, the workload per house is estimated at approximately 50
worker-days (about 10 workers working for five days)97.

（4） Ordering of decontamination and related works
For the ordering of decontamination and related works in the Special Decontamination
Areas, the MOE issued, in accordance with the government procurement procedures, a publicannouncement and notice of Common Specifications, Special Specifications, Provisional
Estimation Standards and other relevant documents and publicly advertised for technicalproposals. After reviewing the technical proposal documents, the MOE invited public bids andopened them. The decontamination business operators were selected by comprehensive
evaluation of cost points and technical evaluation points.
For the public announcement and notice, the MOE coordinated estimation unit prices todecide its estimated price as the ordering party. The unit prices were estimated based on thepast examples of public works and the results of decontamination model projects asmentioned in (3) above.
For the Intensive Contamination Survey Areas, the municipal governments developed
decontamination work plans, as mentioned in Chapter 1.1.7, and they placed an order fordecontamination and related works using the special grant for emergency work of radiation
reduction measures of the National Government as the financial resource which was provided
based on the decontamination work plans. The special grants cover decontamination methods
to be used in relatively high dose areas and in relatively low dose areas. For example: for the

97Source: “On-site explanation of decontamination plan and request for understanding of implementation fordecontamination works” (http://www.katsurao.org/uploaded/attachment/6.pdf )188

work to decontaminate a stand-alone house in a relatively high dose area, such work methods
are added as: (i) removing surface soil, covering with fresh soil, and consolidating for restoring
the gardens and the like to the original state; (ii) upturning, (iii) removing contaminated soil,
and covering with fresh soil from excavation for field storage development；or (iv) coveringwith uncontaminated soil.98

4.2.3. Decontamination Work by Decontamination Business Operators
The following is an overview of the decontamination and related works performed bydecontamination business operators for an order from the MOE to carry out decontaminationin the Special Decontamination Areas.

（1） Development of work plans
Prior to the commencement of decontamination work, decontamination business operatorsdevelop a comprehensive work plan including all necessary steps and methods to complete theproject, and submit it to the MOE supervisor.
It should be noted that this comprehensive work plan describes an overview of the work, theoverall schedule, site organizational chart, work methods (including test work methods andevaluation methods), work management plan, safety management plan (including mattersrelated to radiation protection, and methods to prevent the spread of contamination), andemergency systems and responses, etc.

（2） Development of organizational structure for implementation
1）Designation of the radiation control officer and work leaders
Decontamination business operators are required to designate a person to direct andsupervise the radiation management of decontamination workers (radiation control officer),and a person in each work unit (work group) to lead the group’s activities (work leader).
The radiation control officer is in charge of the following activities.
Conducting special education for decontamination workers based on Article 19 of the
Ionizing Radiation Ordinance for Decontamination
Instructing decontamination workers thoroughly in proper wearing of protective
clothes and equipment according to the work contents
Instructing decontamination workers in thoroughly practicing proper operation ofmachines and equipment necessary to control ionizing radiation
Inspecting in advance machines, equipment and the like which are necessary to control
ionizing radiation, and securing necessary functions and quantities
Inspecting in advance protective clothes, equipment and the like, and securing
necessary functions and quantities
Controling access of persons not engaged in the work to the site
Supervising decontamination workers in using radiation measuring instruments
Understanding the work sequence, work contents, and working environment such as
the average air dose rate at the working location, and assisting the acting site manager
and similar responsible person(s) at meeting(s) for work procedures before starting thework
Administrating properly the decontamination workers’ roster and their radiation
passbooks
Administrating the records of radiation exposure dose measurements of
98Source: Ministry of the Environment (MOE), "Radiation reduction measures special urgent projectsubsidyhandling instructions" (tentative translation)

189decontamination workers2）Preparation of rosters of decontamination workers and their identification cards
Decontamination business operators are required to prepare a roster of decontamination
workers in which a record is made for each worker before they begin the designateddecontamination work, their name, age, job title, and radiation passbook registration number.
When the decontamination workers terminate their engagement in the designated work, thedecontamination business operators remove them from the roster. Decontamination business
operators are required to check decontamination workers have or do not have their radiation
passbooks at the time they start the decontamination work. If workers have radiation
passbooks, the decontamination business operator record the registration numbers in theroster; workers who do not have the radiation passbook are required to get it by the time theyleave the designated work.
In addition, decontamination business operators are required to submit requests to the
MOE supervisor for personal identification cards for each decontamination worker, and uponreceiving the issued cards, ensure that decontamination workers always carry these cards
with them while working.

（3） Test work
Test work is carried out for the purpose of choosing the most effective decontamination
methods from candidate methods for particular target objects to be decontaminated, which
are designated by the MOE supervisor, before commencing the actual decontamination andrelated works. Once no further significant reductions can be observed in radiation dose rates,
even with repeated decontamination processes, the decontamination business operators
report this to the MOE supervisor and proceed at his/her direction.
This is due to the reality that, unless test work is carried out in actual site conditions, theoptimum parameters in decontamination work cannot be determined, for example, thenumber of steps for wiping work, the depth and speed of deep ploughing work, the water jetpressure and moving speed of high-pressure road surface cleaners, etc. Specifically, forexample, the surface dose rate can be further reduced with two wiping steps than with only
one, and further with three than with only two, but after a certain number of steps the rate ofsurface dose reduction declines. Increase of wiping steps has a disadvantage, too. A new paper
towel or rag cleaning face is used in each step of wiping. Consequently, an increase in thenumber of steps of wiping causes not only increased work time but also an increase ofmaterials and waste. In deep plowing work, the standard plowing depth is 30 cm for a gooddecontamination effect, but when the soil base is shallow, stones may be turned up in thesurface layer or water leaks from rice fields may be caused. Coordination becomes necessary
for setting the best parameter for a particular decontamination target. Also in deep plowing
work, higher moving speeds of the machinery (tilling tractors) may shorten the work time, but
this may not stir the soil enough to achieve a sufficient decontamination effect.
Test work should be implemented considering the following items.
(i) Decontamination business operators are required to prepare the test work plan andsubmit the document to the MOE supervisor; the document describes thedecontamination flow, test locations, number of test points, measurement methods(including measuring equipment), number of tests, etc. for the decontamination objects
and decontamination methods as designated by the MOE supervisor.
(ii) The decontamination flow should include several cases in which parameters possibly
affecting the decontamination rates (e.g., work time per unit area, number of tests, test
location, water pressure for high-pressure washing, and distance between the jet nozzle
and ground, etc.) are changed.
(iii) Test locations and points for the target objects to be decontaminated and methods
thereof designated by the MOE supervisor should be chosen with a good balance that190

considers the situation in the area where the decontamination measures are to be
implemented.

（4） Implementation of decontamination projects
The Common Specifications specify decontamination methods for each target object to be
decontaminated. Prior to commencing the work, decontamination business operators prepare
the comprehensive work (or construction) plans, including procedures, methods and all othernecessary items required for completion of the project, and submit them to the MOE
supervisor.
The decontamination work covers not only decontamination for reducing air dose rates in anarrow sense, but also the methods for pre-decontamination works and post-decontamination
works for restoration. For example “cleaning by road sweepers” (6.1.2.6) has the purpose ofbeing a prior preparation to decontamination work or the purpose of maintenance.
“Restoration of soil fertility” (8.1.2.7-(1) and others) for farmland can be regarded as a
post-process work (restoration to the state before contamination). On the other hand, there
are such methods as “sediment removal” (1.1.1.1 and others), which, depending on actual site
conditions, can be regarded as methods for reducing the air dose rate in a narrow sense of
decontamination, or can be also regarded as a preparatory process before “wiping” (1.1.1.2
and others) or “brush cleaning” (1.1.1.3 and others).
Table 4-7 Decontamination methods for each decontamination target 99
TargetDecontamination methods
1. Residential 1.1 Roofs,
1.1.1 Roofs (all1.1.1.1 Sediment removal
areas, etc.
rooftops
materials except 1.1.1.2 Wiping
concrete)
1.1.1.3 Brush cleaning
1.1.2 Roofs
1.1.2.1 Sediment removal(concrete)
1.1.2.2 Wiping
1.1.2.3 Brush cleaning
1.2 Walls,
1.2.1 Except
1.2.1.1 Wiping
Fencesearthen walls
1.2.1.2 Brush cleaning
1.2.2 Earthen
1.2.2.1 Wiping
walls
1.3 Gutters
1.3.1 Eave
1.3.1.1 Sediment removal
gutters
1.3.1.2 Wiping
1.3.1.3High-pressure
washing
1.3.2
1.3.2.1 High-pressure
Downspouts
washing
1.4 Gardens, 1.4.1 Unpaved
1.4.1.1 Sediment removal
etc.
surfaces
1.4.1.2 Weeding, mowing
1.4.1.3 Close mowing of
lawns
1.4.1.4 Peeling off grass andlawn top layer
1.4.1.5 Sodding
1.4.1.6 High-pressure
washing of gravel andcrushed stone
Source: Decontamination Project Common Specifications (7th Edition)(http://tohoku.env.go.jp/fukushima/to_2014/data/0410ba.pdf)
99

191

Target1.4.2 Paved
surfaces

Schoolbuildings

2.1 Roofs,
roof tops－

2.2 Walls,
fences

－2.3 Gutters2.3.1 Eave
gutters

2.4 Groundsurfaces, etc.

2.3.2
Downspouts
2.4.1 Sediment2.4.2 Grassareas, Lawns

2.4.3 Gravel,crushed stone

2.4.4 Soil

192

Decontamination methods
1.4.1.7 Removal of gravel
and crushed stone
1.4.1.8 Covering of gravel
and crushed stone
1.4.1.9 Peeling off topsoil
1.4.1.10 Covering the
ground surface
1.4.1.11 Topsoil removal intree root vicinity etc.
1.4.1.12 Pruning of garden
trees
1.4.1.13 Trimming of garden
trees
1.4.1.14 (Deleted)
1.4.1.15 Upturning soil
1.4.2.1 Sediment removal
1.4.2.2 Brush cleaning
1.4.2.3 High-pressure
washing
1.4.2.4 Peeling1.4.2.5 Abrasive material
blasting
2.1.1.1 Sediment removal
2.1.1.2 Wiping
2.1.1.3 Brush cleaning
2.1.1.4 High-pressure
washing
2.2.1.1 Wiping
2.2.1.2 Brush cleaning
2.2.1.3 High-pressure
flushing
2.3.1.1 Sediment removal
2.3.1.2 Wiping
2.3.1.3 High-pressure
washing
2.3.2.1 High-pressure
washing
2.4.1.1 Sediment removal
2.4.2.1 Weeding, Mowing
2.4.2.2 Close mowing of
lawns
2.4.2.3 Peeling off grass andlawn top layer
2.4.2.4 Sodding
2.4.3.1 High-pressure
washing of gravel andcrushed stone
2.4.3.2 Removal of gravel
and crushed stone
2.4.3.3 Covering of gravel
and crushed stone
2.4.4.1 Topsoil removal
around drain outlets, eave

Target2.4.5 Plantings

2.4.6 Paved
surfaces

3. Parks(small)2.5 Playequipment,
etc.
3.1 Roofs,
rooftops

2.5.1 Playequipment, etc.

3.2 Walls,
Fences

3.2.1 Walls,
Fences

3.3 Gutters3.3.1 Eave
gutters

3.4 Grounds,
etc.

－

3.3.2
Downspouts
3.4.1 Sediment3.4.2 Grassareas, Lawns

3.4.3 Gravel,
Crushed stone

193

Decontamination methods
gutter outlets
2.4.4.2 Peeling off topsoil
2.4.4.3 Covering of groundsurface
2.4.4.4 Upturning
2.4.5.1 Topsoil removal intree root vicinity etc.
2.4.5.2 Pruning of plantings
2.4.5.3 Trimming of trees
2.4.6.1 Sediment removal
2.4.6.2 Brush cleaning
2.4.6.3 High-pressure
washing
2.4.6.4(1)、2.4.6.4(2)Scraping
2.4.6.5 Abrasive material
blasting
2.4.6.6 Superhigh pressure
flushing
2.4.6.7 Resurfacing
2.5.1.1 Wiping, Brushcleaning, Scraping
3.1.1.1 Sediment removal
3.1.1.2 Wiping
3.1.1.3 Brush cleaning
3.1.1.4 High-pressure
washing
3.2.1.1 Wiping
3.2.1.2 Brush cleaning
3.2.1.3 High-pressure
washing
3.3.1.1 Wiping
3.3.1.2 Brush cleaning
3.3.1.3
High-pressurewashing
3.3.2.1 High-pressure
washing
3.4.1.1 Sediment removal
3.4.2.1 Weeding, mowing
3.4.2.2 Close mowing of
lawns
3.4.2.3 Peeling off grass andlawn top layer
3.4.2.4 Sodding
3.4.3.1 High-pressure
washing of gravel andcrushed stone
3.4.3.2 Removal of gravel
and crushed stone
3.4.3.3 Covering of gravel
and crushed stoneTarget3.4.4 Soil

3.4.5 Plantings

3.4.6 Paved
surfaces

3. Parks (big)

3.5 Playequipment,
etc.
4.1 Roofs,
Rooftops

3.5.1 Playequipment, etc.

4.2 Walls,
Fences

4.2.1 Walls,
Fences

4.3 Gutters4.3.1 Eave
gutters

4.4 Groundsurfaces, etc.

－

4.3.2
Downspouts
4.4.1 Sediment4.4.2 Grassareas, Lawns

4.4.3 Gravel,
Crushed stone

4.4.4 Soil

194

Decontamination methods
3.4.4.1 Peeling off topsoil
3.4.4.2 Covering of groundsurface
3.4.4.3 Upturning
3.4.5.1 Topsoil removal intree root vicinity etc.
3.4.5.2 Pruning of plantings
3.4.5.3 Trimming of trees
3.4.6.1 Sediment removal
3.4.6.2 Brush cleaning
3.4.6.3 High-pressure
washing
3.4.6.4 Peeling3.4.6.5 Abrasive material
blasting
3.5.1.1 Wiping, Brushcleaning, Peeling4.1.1.1 Sediment removal
4.1.1.2 Wiping
4.1.1.3 Brush cleaning
4.1.1.4 High-pressure
washing
4.2.1.1 Wiping
4.2.1.2 Brush cleaning
4.2.1.3 High-pressure
washing
4.3.1.1 Sediment removal
4.3.1.2 Wiping
4.3.1.3 High-pressure
washing
4.3.2.1 High-pressure
washing
4.4.1.1 Sediment removal
4.4.2.1 Weeding, mowing
4.4.2.2 Close mowing of
lawns
4.4.2.3 Peeling off grass andlawn top layer
4.4.2.4 Sodding
4.4.3.1 High-pressure
washing of gravel andcrushed stone
4.4.3.2 Removal of gravel
and crushed stone
4.4.3.3 Covering of gravel
and crushed stone
4.4.4.1 Topsoil removal
around drain outlets, Eave
gutter outlets
4.4.4.2 Peeling off topsoil
4.4.4.3 Covering of groundsurfaceTarget4.4.5 Plantings

4.4.6 Paved
surfaces

5. Large
facilities

4.5 Playequipment,
etc.
5.1 Roofs,
Rooftops

4.5.1 Playequipment, etc.

5.2 Walls,
Fences

5.2.1 Walls,
Fences

5.3 Gutters5.3.1 Eave
gutters

5.4 Groundsurfaces, etc.

5.4.1 Sediment5.4.2 Grassareas, Lawns

5.1.1 Roofs,
Rooftops

5.4.3 Gravel,crushed stone

5.4.4 Soil

5.4.5 Plantings

195

Decontamination methods
4.4.4.4 Upturning
4.4.5.1 Topsoil removal intree root vicinity etc.
4.4.5.2 Pruning of plantings
4.4.5.3 Trimming of trees
4.4.6.1 Sediment removal
4.4.6.2 Brush cleaning
4.4.6.3 High-pressure
washing
4.4.6.4 Peeling4.4.6.5 Abrasive material
blasting
4.4.6.6 Super-high-pressure
washing
4.4.6.7 Repaving
4.5.1.1 Swabbing, cleaning,
peeling
5.1.1.1 Sediment removal
5.1.1.2 Wiping
5.1.1.3 Brush cleaning
5.1.1.4 High-pressure
washing
5.2.1.1 Wiping
5.2.1.2 Brush cleaning
5.2.1.3 High-pressure
washing
5.3.1.1 Sediment removal
5.3.1.2 Wiping
5.3.1.3 High-pressure
washing
5.4.1.1 Sediment removal
5.4.2.1 Weeding, mowing
5.4.2.2 Close mowing of
lawns
5.4.2.3 Peeling off grass andlawn top layer
5.4.2.4 Sodding
5.4.3.1 High-pressure flushof gravel and crushed stone
5.4.3.2 Removal of gravel
and crushed stone
5.4.3.3 Covering of gravel
and crushed stone
5.4.4.1 Topsoil removal
around drain outlets, Eave
gutter outlets
5.4.4.2 Peeling off topsoil
5.4.4.3 Covering of groundsurface
5.4.4.4 Upturning
5.4.5.1 Topsoil removal intree root vicinity etc.

Target5.4.6 Parking
lots (concrete,asphalt)

6. Road

5.5 Playequipment,
etc.
6.1 Pavedroad

5.5.1 Playequipment, etc.

6.2 Unpaved
roads

6.2.1 Road
surfaces (soil)

6.1.1 Sediment6.1.2 Road,
Sidewalk

6.2.2 Road
surfaces (gravel,crushed stoneroads)

6.3
Guardrails

6.3.1 Guardrails

6.4 Side
ditches , etc.
6.5
Pedestrian
bridges

6.4.1 Side
ditches , etc.
6.5.1 Pedestrian
bridges

196

Decontamination methods
5.4.5.2 Pruning of plantings
5.4.5.3 Trimming of trees
5.4.6.1 Sediment removal
5.4.6.2 Brush cleaning
5.4.6.3 High-pressure
washing
5.4.6.4 Peeling
5.4.6.5 Abrasive material
blasting
5.4.6.6 Super-high-pressure
washing
5.4.6.7 Repaving
5.5.1.1 Wiping, Brushcleaning, Peeling6.1.1.1 Sediment removal
6.1.2.1 High-pressure
washing
6.1.2.2 Peeling6.1.2.3 Abrasive material
blasting
6.1.2.4 Super-high-pressure
washing
6.1.2.5 Repaving
6.1.2.6 Cleaning with roadsweepers
6.2.1.1-(1) Weeding
6.2.1.1-(2) Sedimentremoval6.2.1.2 Side ditches, etc.
6.2.1.3 Covering of groundsurface
6.2.1.4 Upturning
6.2.2.1-(1) Weeding
6.2.2.1-(2) Sedimentremoval6.2.2.2 High-pressure
washing of gravel andcrushed stone
6.2.2.3 Removal of gravel
and crushed stone
6.2.2.4 Covering of gravel
and crushed stone
6.3.1.1 Brush cleaning
6.3.1.2 High-pressure
washing
6.3.1.3 Wiping
6.4.1.1 Bottom sedimentremoval, etc.
6.5.1.1 Sediment removal
6.5.1.2 High-pressure
washing
6.5.1.3 Wiping

Target6.6 Roadsidetrees

6.6.1 Sediment6.6.2 Grass
6.6.3 Roadsidetrees

7. Slopes

7.1 Slopes

8. Farmland

8.1 Rice
paddies

7.1.1 Sediments(grass, fallen
leaves, etc.)
8.1.1 Grass

Decontamination methods
6.5.1.4 Brush cleaning
6.6.1.1 Sediment removal
6.6.2.1 Weeding, mowing
6.6.3.1 Soil removal aroundroot area of roadside trees
6.6.3.2 Debranching ofroadside trees

8.1.2 Soil

197

7.1.1.1 Sediment removal
8.1.1.1-(1) Manual weeding
8.1.1.1-(2) Machine weeding
8.1.1.1-(3) Buildup of
weeding material
8.1.1.1-(4) Packing
8.1.1.1-(5) Small transfer insite
8.1.2.1-(1) Bump leveling
8.1.2.1-(2) Surface fixationmaterial dispersion
8.1.2.2-(1)-①、
8.1.2.2-(1)-②Peeling off
surface soil (standardtransportation method)
8.1.2.2-(1)-③ Packing(standard transportation
method)8.1.2.2-(1)-④ Smalltransport vehicles(standard transportation
method)8.1.2.2-(2)-① Peeling off
surface soil (suction
method)8.1.2.2-(2)-② Packing(suction method)
8.1.2.2-(2)-③ Smalltransport vehicles (suction
method)8.1.2.3 Deleted
8.1.2.4-(1) Reverse
cultivation (plowing 30cm)
8.1.2.4-(2) Reverse
cultivation (plowing 45cm)
8.1.2.4-(3) Base land
preparation
8.1.2.4-(4) Turn plowing
8.1.2.5 Deep plowing
8.1.2.6 Adding soil
8.1.2.7-(1) Restoration ofsoil fertility (soil
improvement agent

Target8.2 Fields

8.2.1 Grass
8.2.2 Soil

8.3 Meadows

8.3.1 Grass

8.3.2 Soil

9. Grass areas,
lawns
10. Orchards

8.4 Water
channels

8.4.1 Water
channels

8.5 Ridge
fronts

8.5.1 Ridge
fronts

9.1 Shrubs(dense)9.2 Shrubs(coarse)10.1
Orchards

9.1.1 Shrubs(dense)9.2.1 Shrubs(coarse)10.1.1 Sediment10.1.2 Grass
10.1.3 Orchard
198

Decontamination methods
dispersal)
8.1.2.7-(2) Restoration ofsoil fertility (zeolite
dispersal)
8.1.2.8 Upturning
8.2.1.1 Weeding
8.2.2.1 Surface fixationmaterial dispersion
8.2.2.2-(1) Peeling off topsoil(standard transportation
method)8.2.2.2-(2) Peeling off
surface soil (suction
method)8.2.2.3 Deleted
8.2.2.4 Reverse cultivation
8.2.2.5 Deep plowing
8.2.2.6 Adding soil
8.2.2.7 Land power recovery
8.2.2.8 Upturning
8.3.1.1 Weeding
8.3.1.2 Deleted
8.3.1.3-(1) Seeding(dispersion)
8.3.1.3-(2) Seeding(suppression)
8.3.2.1 Peeling off surface
soil
8.3.2.2 Reverse cultivation
8.3.2.3 Deep plowing
8.3.2.4 Adding soil
8.3.2.5 Land nutrient
recovery
8.4.1.1-(1) Bottom
sediments removal, etc.
(earth and sand removal)
8.4.1.1-(2) Bottom
sediments removal, etc.
(packing)
8.5.1.1-(1) Sedimentremoval8.5.1.1-(2) Weeding
8.5.1.2-(1) Peeling off
surface soil
8.5.1.2-(2) Packing
8.5.1.3 Ridge front recovery
9.1.1.1 Trimming
9.2.1.1 Trimming
10.1.1.1 Sediment removal
10.1.2.1 Weeding
10.1.3.1 Peeling off coarse

Targettree

10.1.4 Soil
11. Forests

11.1
Evergreen
needle-leavedtrees

11.1.1 Organic
sediments

11.1.2 Soil11.1.3 Timber

11.2
Deciduous
broadleaf
trees

11.1.4 Roughcutting
11.1.5 Removalof residualorganic
sediments
11.2.1 Organic
sediments

11.2.2 Soil11.3 Bushes

11.2.3 Timber
11.2.4 Roughcutting
11.2.5 Removalof residualorganic
sediments
11.3.1 Organic
sediments

199

Decontamination methods
bark
10.1.3.2 High-pressure
washing of tree bark10.1.3.3 Pruning of orchard
trees
10.1.3.4 Trimming oforchard trees
10.1.4.1 Peeling off surface
soil
10.1.4.2 Adding soil
11.1.1.1-(1)、11.1.1.1-(2)、11.1.1.1-(3) Removal oforganic sediments
11.1.1.1-(4) Removal oforganic sediments(non-management zone)
11.1.1.1-(5) Arrangement of
cutoff chips
11.1.2.1 Prevention ofre-spreading (soil loading)
11.1.2.2 Prevention ofre-spreading (board rack)
11.1.3.1-(1)、11.1.3.1-(2)、11.1.3.1-(3) Pruning of
needle leaf trees, collectionof branches
11.1.4.1 Pruning
underbrush, shrubs
11.1.5.1 Removal of residualorganic sediments
11.2.1.1 Removal of organic
sediments
11.2.1.2 Removal of organic
sediments(non-management zone)
11.2.2.1 Prevention ofre-spreading (soil loading)
11.2.2.2 Prevention ofre-spreading (board rack)
11.2.3.1 Fascine bonding
11.2.4.1 Pruning
underbrush, shrubs
11.2.5.1 Removal of residualorganic sediments
11.3.1.1 Removal of organic
sediments
11.3.1.2 Removal of organic
sediments(non-management zone)

Target11.3.2 Soil

12. (Deleted)
13. Temporary
installations,
etc.

－
－

11.3.3 Timber
11.3.4 Roughcutting
11.3.5 Removalof residualorganic
sediments－－

200

Decontamination methods
11.3.2.1 Prevention ofre-spreading (soil loading)
11.3.2.2 Prevention ofre-spreading (board rack)
11.3.3.1 Fascine bonding
11.3.4.1 Pruning
underbrush, shrubs
11.3.5.1 Removal of residualorganic sediments－
13.1.1.1 Groundwater
investigation for storage
area
13.1.1.2 Weeding
13.1.1.3 Trimming of shrubs(thick)13.1.1.4 Trimming of shrubs(coarse)13.1.1.5-(1) Logging, root
removing (logging work)
13.1.1.5-(2) Logging, root
removing (root removing
work)
13.1.1.5-(3) Logging, root
removing (accumulation
work)
13.1.1.6 Leveling13.1.1.7 Cutting earth,
Filling earth
13.1.1.8 Covering of gravel ,crushed stone
13.1.1.9-(1) Installation ofbottom sheets (water
blocking sheet)
13.1.1.9-(2) Installation ofprotection layers
13.1.1.9-(3) Installation of
upper sheets (breathable
waterproof sheets andwater blocking sheets)
13.1.1.10 Leachatecollection channels,
Leachate collection pipe
facilities
13.1.1.11 Installation ofleachate collection facilities
13.1.1.12 Installation of
surface water collection
facilities
13.1.1.13 Deleted
13.1.1.14 Storage carry-in,Target14. Deleted
15. Effluent
treatment－
15.1 Effluent
treatment－
15.1.1 Effluent
treatment

Decontamination methods
installation
13.1.1.15 Lateral shielding
13.1.1.16 Upper shielding
13.1.1.17 End treatment
13.1.1.18 Ancillary facilities
13.1.1.19 Installation ofradiation tubes (gas-ventpipes), gas-vent outlets
13.1.1.20 Installation ofthermometers－15.1.1.1 Treatment ofdischarged water(precipitation treatment)
15.1.1.2 Sludge treatment
15.1.1.3-(1) Installation of
turbid water treatment
facilities
15.1.1.3-(2) Water
treatment facilities forremoval of turbidity（5） Project management
The Common Specifications (7th Edition) specify the project management methods forradiation dose measurements, administration of temporary storage sites, and confirmation of
the work results.

1）Radiation dose measurements
Decontamination business operators are required to select appropriate measuring
instruments which have sufficient performance for measurements, taking into account theenvironment, use conditions, and other matters. Decontamination business operators also
ensure that appropriate numbers of instruments are available and calibrated in advance.
Decontamination business operators report to the MOE supervisor the name, serial number,date of calibration, term of validity and error values (the variance in measurements at thesame measuring point) of the instruments, and conduct daily inspections of them.
When measuring air dose rates, radiation survey meters which meet JIS Z 4333
specifications and the following performance and requirements should be used.
Type of radiation to measure: gamma rays, X-rays
Reference radiation source for calibration: cesium-137
Display unit: μSv/h
Relative standard errors100: below ±15%
Energy characteristics: energy range 60 keV to 1.5 MeV, sensitivity 0.85 to 1.15
Directional characteristics: below ±25% (angular range of ±90°)
Response time or time constant: to be specified
The relative standard error is the deviation of readings of the instrument from the reference radiationdose, expressed in percent. (Some instruments use the terms “reading accuracy” or “relative readings error”
with the same meaning)
100

201

Service temperature range: covers -10 to +40 deg C
On the other hand, when measuring surface contamination densities, surface
contamination survey meters which meet performance and other requirements specified in
JIS Z 4329 should be used, and the results should be recorded as count rates (counts per
minute, cpm).
The measurement of radiation dose rate should be done in principle under dry conditions(to avoid shielding influence of moisture), and should follow the specific sequence below.
Set and fix the time constant at 10 s when measuring radiation.
Read and record the readings 30 s after fixing the probe (detectors) of the measuring
instrument at the measuring point.
Keep the probe parallel to the ground surface, while facing east and holding the probe
as far away from the body as possible for the measurement.
Take the average of the readings as the measured value.
For those who are not specialists in using radiation measuring instruments, information isprovided in the “Performance check-sheet of radiation measuring instruments” (Performance
Check-sheet Committee, Japan Electric Measuring Instruments Manufacturers' Association,
April 2013) to select the proper instruments.

2）Administration of temporary storage sites
Once all the removed soil and the like have been received, and shielding work above themhas been completed, the decontamination business operators are required to commence
administration of each temporary storage site and to continue this administration as
appropriate in accordance with the direction of the MOE supervisor, until the responsibility ofmanagement of temporary storage sites is handed over to the MOE or other operators
designated by the MOE.

3）Confirmation of project results
Upon implementation of decontamination and other measures in residential areas and thelike, decontamination business operators are required to: compile a report on the work resultsof these measures; allow the responsible person (foreman or manager) of the operator to check
whether the measures have been appropriately implemented in each residential area and thelike based on the report; and submit the results to the MOE supervisor.

（6） Check surveys
The goal of decontamination work is to reduce radiation levels, and given that this cannot
be confirmed visually, quality management methods are important. For example, it is difficult
to judge visually the finished quality of wiping and cleaning after decontamination work.
Therefore, MOE personnel randomly choose some part of the surfaces after decontamination,
have the decontamination business operators perform their decontamination work again
using the same method, and check if there is no further reduction in surface dose rates after
this additional decontamination.
In the case of wiping and cleaning, the number of wiping steps and the cleaning speed are
set from the test decontamination results as those values which can achieve no further
significant radiation dose reduction. Therefore, where wiping and cleaning are finished, nofurther significant reduction will be anticipated, even if the work is repeated. To the contrary,
if the radiation dose is found to have fallen in the check below the control value (the standard
deviation of the dose reduction rate before and after the additional check of thedecontamination measure), the decontamination measures should be repeated under the
direction of the MOE supervisor.
The radiation dose measurements in the check surveys should be carried out before andafter the decontamination work using lead blocks in order to shield measurement
202

instruments from radiation emitted by the surroundings. The same measurement
instruments should be used before and after the decontamination work to measure the air
dose rates at a distance of 1 cm from the surface being checked.

（7） Project management standards
The Decontamination Work Project Control Standards presented in the Common
Specifications specify the schedule and progress control, finished quality control, material
quality control and photo control.

1）Schedule and progress control
Decontamination business operators are required to perform appropriate schedule controls
using maps, networks, bar charts, etc., and to prepare daily work reports from the day of workcommencement until the day of its completion. The daily reports should include the weather,
workplaces, work contents, list of workers on duty, quantities of finished work, machinery
used, radiation dose rates in the work areas, etc. as well as the items instructed, approved,
consulted about, etc., and should be accompanied by attachments such as work photos inaccordance with the Photo Control Standards, the checklists of the results of decontamination
related works.

2）Finished quality control
Decontamination business operators are required to measure the items as specified in the
Finished Quality Control Standards for each type of work designated in the Common
Specifications, and to prepare and control the Finished Quality Control Sheets which record
the compared results of the measured values with the work plan values.

203

Finished work quality measuring control

Work
Residential
area

Regulated Remark
value
(mm)

Measuring criterion

Items

Removalof gravelandcrushedstone(1.4.1.7)

・1 place per work area 1000m2( 1place per work site for equal and lessthan work area 1000m2,
・Reference height is defined as the height above sea level lower than theheight before work by regulated height (5cm) for the relevant place foreach measuring point
・Direct measurement on the basis of the height above sea level for the
ground surface after work

Referenceheight±10

Removalof gravel,andcrushedstone(1.4.1.8)

・1 place per work area 1000m2( 1place per work site for equal and less than work
area 1000m2,
・Reference height is defined as the height above sea level before work of “removalof gravel and crushed stone (1.4.1.7)”for the relevant place for each measuring
point・Direct measurement on the basis of the height above sea level for the groundsurface after work

Referenceheight±10

Scraping of
surface soil
(1.4.1.9)

・1 place per work area 1000m2( 1place per work site for equal and less than work
area 1000m2,
・Reference height is defined as the height above sea level lower than the height
before work by regulated height (5cm) for the relevant place for each measuring
point・Direct measurement on the basis of the height above sea level for the groundsurface after work

Referenceheight±10

Covering
overgroundsurface(1.4.1.10)

・1 place per work area 1000m2( 1place per work site for equal and less than work
area 1000m2,
・Reference height is defined as the height above sea level before work of “scrapingof surface soil(1.4.1.9) “for the relevant place for each measuring point
・Direct measurement on the basis of the height above sea level for the groundsurface after work

Referenceheight±10

Upturn(1.4.1.15)

・1 place per work area 1000m2( 1place per work site for equal and less than work
area 1000m2). The following item①should be measured.
Referenceheight±10①
・Reference elevation is defined as the elevation lower than that (V0) before the workby the standard value (10cm).
・Direct measurement on the basis of the height above sea level for the groundsurface after scraping of surface soil

V0
h1

V1

Figure 4-5 Finished Quality Control Standards (Excerpt)101.

3）Material quality control
Decontamination business operators are required to ensure appropriately that the qualityof materials used in decontamination and related works meet the Material Quality Control
Standards.

101Source: Decontamination Construction Project Management Standards in the Special Decontamination

Areas (7th Edition) (http://tohoku.env.go.jp/fukushima/to_2014/data/0410aa.pdf) (Figure 4-6 to Figure 4-7
have the same source.)

204

Type
Residentialarea, School,
Park, Large
facility,
Farm landClass

Category

Residential Mandatory
area, school,park, large
facility, farm
land

Test item

Test method

Measurement Gamma- rayof radioactive spectrometry
CesiumdensityStandard value

Test standard

Remarks

Sum of Cesium Once for each
134 and Cesium product district
137 shall be
before carry-in
under 400 Bq/kg

Other quality control is based on “civil engineering work control criteria and its regulated value”(Ministry of Land, Infrastructure, Transport and Tourism).

Figure 4-6 Material Quality Control Standards.

4）Photo management
As a means of managing the construction work, decontamination business operators are
required to take photographs, in accordance with the Photo Control Standards, at eachconstruction stage, of the following items: the state of areas that cannot be visually confirmed
after the completion of construction work; finished work measurements; material quality
control conditions, and accidents during construction. Further, these photos are to beappropriately controlled, stored and submitted at the completion of construction work.
Pictures before start and completion(including previously completed portion)
Picture of construction status
Picture of safety control
Picture of material used for work

Construction photographs

Picture of quality control
Picture of finished work control
Picture of disaster
Picture of accident
Others (pollution, circumstance, and compensation)

Figure 4-7 Classification of work photos (excerpt) in the Photo Control Standards.

4.2.4. Securing of Necessary Resources by Decontamination Business Operators
There were a number of issues faced by decontamination business operators in securingresources needed in the decontamination and related works ordered by the MOE in theSpecial Decontamination Areas. These issues and the methods for solving them aresummarized below.

（1） Issues concerning radiation measurements1）Procurement and operation of exposure dose measurement apparatuses for workers
External exposure dose of workers can be controlled based on measurements obtained using
personal dosimeters (cumulative-type dosimeters or electronic dosimeters). Somedecontamination business operators used an access management system and other systems
related to the air dose distribution in the workplaces for exposure dose control. Measurements
using whole-body counters (WBCs) were used for internal exposure dose control.
205

Decontamination business operators instructed each worker to wear personal
cumulative-type dosimeters and to read the indications before and after the work day formeasurement of the exposure dose for that day. The measured data were processed together
with the information stored in the data base and used for personal exposure dose control.
On the other hand, individual workers are required to receive medical checks for ionizing
radiation in decontamination and related works at the time of employment by thedecontamination business operator or at the time of relocation, and periodically after thatonce in every six months. Internal exposure dose is measured by using WBCs or bioassays, orby evaluating measurement of the air-borne radioactive material concentrations. The WBCs
installed in hospitals were used for the evaluations of community residents, too. Since theWBCs are costly, the MOE opened two WBC Inspection Offices, one in Minami-soma City andanother in Naraha Town (this has since been moved to Tomioka Town).
The issues for decontamination business operators were the requirements: (i) to manage
exposure dose control effectively for a huge number of workers, several thousand (1,000 to
6,000 people) per site; (ii) to manage screening processes of those workers which wereconcentrated exclusively at limited time spans of the day (lunch time, end of the day, etc.); and(iii) to handle a concentration of new workers and leaving workers at limited times of the year
(for example, at the end of the fiscal year).
To cope with these issues, some decontamination business operators adopted a more
efficient dose control system by mechanizing the screening equipment such as hand-footmonitors or the like by using IT tools. There was also a case in which one decontamination
business operator donated a WBC to the local hospital and allowed it to be used for evaluationof local residents when not being used to evaluate the business operator’s workers. Anotherdecontamination business operator applied fingerprint authentication devices for its
radiation control system (Fig.4-8).
Issues, however, remain in balancing cost and efficiency improvement by mechanization
and automation in small-sized or short-term decontamination projects.

Figure 4-8 Example of radiation control using a fingerprint authentication device102.

2）Measurement of air dose rates and other quantities
Scintillation survey meters were mainly used to measure air dose rates of gamma-rays andsurface dose rates. GM survey meters were used to measure beta-rays emitted from theobjects to be decontaminated in order to find the degree of the contamination of the surfaces
and also to check the decontamination effects after decontamination.
Collimators were used in many cases in order to avoid the influence of backgroundradiation from the surroundings, when using scintillation survey meters to measure the102Source: Kajima Corporation (Figure 4-9 has the same source.)

206

degree of the contamination or to check the decontamination effects, and using GM survey
meters to measure the surface contamination densities. For cases in which measurements
were implemented without using collimators, these were for unstable places such as on walls
or roofs where it was not possible to attach the collimators or there were risks of damage tothe targets. Regarding the collimators, if they were used in the measurements before
decontamination they had to be used in the measurements after it and vice versa.
The measurement positions must be known geographically which presents some issues.
The conventional position measuring GNSS (global navigational satellite system;
using a fixed type position checking apparatus) has good accuracy, but is bulky andso heavy that it requires two persons to carry it. On the other hand, thetablet-embedded global positioning system (GPS) is light and easy to handle, but it
has poor accuracy and needs much time to locate the measurement points, especiallyfor inaccurate data.
One person reads the measurements while a second person records the data on paper
or a tablet device. Such work flow is inefficient and has the risk of reading errors
depending upon how proficient the persons are.
To cope with these issues, a wearable GNSS system was used by one decontamination
business operator in measuring the air dose rates. The system had several advantages: (i) one
worker instead of two was needed for measuring and recording data because the equipment
weight was reduced to 1/5 that of the conventional apparatus and measured data were sent by
a wireless transmitter to a recording unit; (ii) work efficiency was improved more thanten-fold by having a high-speed navigation system like that of a car-navigation system; and(iii) the progress of decontamination work can be visualized using the measured results andthe geographic information system (GIS) (Fig.4-9).

Figure 4-9 Example photos showing use of GNSS-based air dose rate measurement system.

（2） Materials and equipment for use in decontamination work
The “Decontamination Guidelines” requires tools be prepared that are necessary fordecontamination and related works and for collection of removed soil and other wastes,
depending on the decontamination target objects or work circumstances. Examples ofdecontamination tools for the work on structures like buildings are shown in Figure 4-10.
207

Restoration and reconstruction work from the damage by the Great East Japan Earthquakeand ensuing tsunami (hereafter simply the “earthquake and tsunami”) has been ongoing on
the Pacific coast in parallel with the decontamination work. This situation sometimes caused
problems to secure necessary quantities of special equipment to use in the decontamination
work. Specifically, it became necessary to improve efficiency and to make a comparative study
between the cost and effectiveness of special equipment, which is generally expensive. Second,equipment leasing companies showed reluctance to enter into lease contracts, being
concerned about contamination of equipment by radionuclides, especially in the early days ofthe decontamination work.
One decontamination business operator was able to over these problems by using materials
and equipment for ordinary general civil engineering work and to use agricultural machinery
owned by local farmers; for the latter the decontamination business operator employed thefarmers under a contract and used their agricultural machines for decontamination work.
Example ofgeneralequipment

Examples ofequipment forcleaning withwater
Examples ofequipment forcleaning metal
surfaces
Examples ofequipment forcleaning wood
surfaces
Examples ofequipment forwork in highplacesExamples ofequipment for
scraping away
Examples ofequipment forcovering the
ground surface

Mower, hand shovel, grass sickle, broom, bamboo rake,
dustpan, tongs, shovel, small shovel, metal rake, compact heavymachinery for scraping away topsoil, garbage bags (bags forburnable matter, burlap sacks for soil and sand (sandbags)),
vehicles for transporting collected removed soil, etc. to theon-site storage location (truck, two-wheeled cart, etc.),ladder
Hose, shower nozzle, high pressure water cleaner, brushes(scrub brush, brush for cleaning vehicles, brush for cleaninghigh places), scrubbing brushes (circular scrubber, steel wool
brush, etc.), wire brushes, tools for pushing away water (broom,
scraper, etc.), bucket, detergent, dustcloth, sponges, paper
towelsBrush, sandpaper, cloth, removing agents

Brush, sandpaper, power sander, cloth, steam cleaner, waterhigh pressure washer, tools for pushing away water (broom,
scraper, etc.)

Scaffold, mobile lift, aerial vehicle

Grinding machine, equipment for scraping away, equipment
needed to prevent dispersion (dust collector, curing mat)
Self-propelled surface compaction roller, plywood for surface
compaction, sprinkling equipment

Figure 4-10 Examples of decontamination tools for work on structures like buildings103.

103Source: Decontamination Guidelines (2nd Edition)(http://josen.env.go.jp/material/pdf/josen-gl-full_ver2_supplement1412.pdf) (Figure 4-11 has the same source.)208

（3） Protective clothing, equipment and other items
The minimum suitable protective clothing, equipment and other items were used according
to the Ionizing Radiation Ordinance for Decontamination and Guidelines of Ionizing
Radiation Ordinance for Decontamination. By doing so, the amount of waste was limited by
avoiding the excessive use of protective clothing, equipment and the like.
The Ionizing Radiation Ordinance for Decontamination and Guidelines of Ionizing
Radiation Ordinance for Decontamination require that protective clothing, equipment andothers be used depending on the radioactivity densities of the contaminated soil and the like,and the dust conditions (Table 4-8).

High density
dust work(exceeding
10mg/m3)

Other than theabove

Table 4-8 Protective clothing, equipment and others104
High contamination soil, etc.
Other than high contamination soil,(exceeding 500 thousands Bq/kg)
etc. (less than 500 thousands
Bq/kg)
Entire body chemical protective
Long-sleeved clothing, cotton
suit over long-sleeved clothing
gloves, rubber boots, dust
(Tyvec etc.), rubber gloves (together protective mask with trappingwith cotton gloves), rubber boots,
efficiency above 80%
dust protective mask with trapping
efficiency above 95%
Long-sleeved clothing, rubberLong-sleeved clothing, cotton
gloves (together with cotton gloves), gloves, rubber boots, dust
rubber boots, dust protective mask protective mask with trappingwith trapping efficiency above 80% efficiency above 80%* Surgical masks, non-woven fabric masks and other practical masks also may be used when handlingvegetation and leaf mold.

（4） Storage containers for removed soil and other wastes
Flexible containers and large sandbags of about 1m3 capacity (dimensions: about 1.1 m indiameter by about 1.1 m in height) (hereinafter referred to as “flecon bags”) were mainly usedas storage containers in the decontamination and related works in the Special
Decontamination Areas ordered from the MOE. Durable materials were used for long-term
storage (a few years) and for storing removed soil containing much water. Selection ofcontainers was based on characteristics, weight, storage duration, etc. of the removed soil andother wastes. Examples of flecon bags include cloth-type containers (for one-time use) with aweather-resistant inner bag, running-type containers (for repeated use), and large
weather-resistant sandbags with an inner bag (Figure 4-11).
Currently used are, as specified in the Common Specifications (7th Edition), those products
which meet the specifications of “Flexible Containers Based on the Decontamination
Guidleines” by the Japan Flexible Container Industries Association, the “Layer Stack Method
Design and Construction Manual for Weather-resistant Large Sandbags” by the Public Works
Research Center, and are certified by official test organizations, as meeting the performancestandards required for materials and container bags.

104Source: Ionizing Radiation Ordinance for Decontamination and Guideline on Ionizing Radiation Ordinancefor Decontamination (http://www.mhlw.go.jp/stf/seisakunitsuite/bunya/0000029897.html )209

Figure 4-11 Examples of flecon bags and large sandbags.
The Common Specifications stipulate that removed soil and other wastes generated in thedecontamination work in the Special Decontamination Areas are to be stored in either of thefollowing nine groups (i) to (ix).
Combustibles:(i) Vegetation (pruned branches, fallen leaves, lawn grass, moss, weeds, litter layers,
trimmed trees, roots, etc. Attached soil should be removed to the extent possible).
(ii) Other combustible wastes (Tyvek coveralls, disposable work clothing, masks,
filters, rubber gloves, paper, etc.)
Incombustibles, mixtures:(iii) Soil and others (soil, gravel, small stones, etc. Vegetation should be removed tothe extent possible.)(iv) Concrete and other materials (tiles, bricks, blocks, rocks, etc.)(v) Mixtures with asphalt(vi) Other incombustibles and mixtures (except dangerous objects, hazardous
materials)
Dangerous objects, hazardous materials(vii) Architectural material including asbestos(viii) Plaster boards(ix) Other dangerous objects, hazardous materials
The Common Specifications require that the tags attached to flexible containers and othersimilar containers be made of materials with corrosion resistance, weather resistance, good
durability and not hazardous and the required information about contents, etc., should bemachined into the tag surface so that it is legible for at least three years under the combined
conditions of decontamination work, and transfer to and storage at temporary storage sites;
finally the tags should be identified by color according to the individual contents.

210

A
B
C
D
E
F

Table 4-9 Correspondence between contents and tag colors105.
Color Content
White Soils, etc. (earth, small stone, gravel, etc.)
Green Corruptive combustible material (pruning branch, fallen leaves, lawn, moss, weed,
litter layer, trimmed tree, uprooting, etc.)
Yellow Combustible material (Tyvec, waste clothe, mask, filter, rubber gloves, paper, etc.)
Blue
Incombustible (concrete, etc. (tile, bricks, block, rock, etc.), mixture with asphalt,
sludge, etc.)
Black Incinerated ash
RedDangerous article (Material including asbestos, soils polluted hazardous material)

There was a case in which one decontamination business operator developed a Quick
Register (QR) code system and applied it for efficiently processing the information below as
the decontamination work progressed:
Read selectively necessary items and input dose data with a handy type input machine;
Transfer the information to a small printer and issue the QR code; andExport the data to the decontamination information system in the format of a delivery.

Development of “QR code issuing system”
・Handy-type input machine which can selectnecessary items and dose・Transfer of data and issuing QR code
・Data are able to be assembled into personal
computer with product-format todecontamination information system
Tag（QR code）

一時保管場でのタグ取付状況

Printer

Handy-type input machine

Making label

Figure 4-12 Examples of QR code issuing system106.

（5） Issues associated with supervisors, skilled workers (with qualifications), anddecontamination workers
Decontamination experts were quite limited among managers and employees (foremen andworkers) of decontamination business operators. Also persons who were knowledgeable about
radiation were limited. Quite a few workers had no field experience in civil engineering or
construction work and they lacked knowledge about industrial health and safety practices,which was quite fundamental at such workplaces. The issue then was to provide education
about basic work safety practices.
Some decontamination business operators had their own personnel educate the workers
while the personnel themselves were learning about the topics, or the operators had the105Source: Decontamination Project Common Specifications (7th Edition)(http://tohoku.env.go.jp/fukushima/to_2014/data/0410ba.pdf)
106Source: Kajima Corporation (Figure 4-14 has the same source.)211

workers learn by actually doing the decontamination work.
To secure necessary numbers of decontamination workers with suitable qualifications, therising market wage was an issue, too. This is because of the ongoing restoration andreconstruction work in parallel with the decontamination work on the Pacific coast from thedamage by the earthquake and tsunami. In particular, the issue regarding decontamination
workers was not only the big workforce required, but also the changing demand of workforce
with the progress of decontamination work as illustrated in Figure 4-13. Somedecontamination business operators, while emphasizing recruitment of local workers, triedalso to acquire workers from prefectures outside Fukushima.

numbers of decontamination workers(persons)trend on numbers of decontamination workers

Accumulative numbers as of December 299,000

Figure 4-13 Monthly change of workforce (Example)107.

107Source: Okumura Corporation (Figure 4-15 has the same source)212

（6） Accommodation facilities for workers
The issue for a large number of the decontamination workers was to secure daily
commuting means (limited available routes and subsequently, traffic jams) from outside theSpecial Decontamination Areas, since all the residents had been evacuated and all existingaccommodation facilities and the like were not in service. Overnight stays are generally notallowed in the areas to which evacuation orders are being prepared to be lifted, but they were
exceptionally allowed if needed for reconstruction. There was a case, in which accommodation
facilities for workers were exceptionally built in the Special Decontamination Areasthroughcoordination with the local municipality and the Nuclear Emergency Response Local
Headquarters.
Some difficulties faced were as given below.
Need to increase the capacity of accommodation facilities for increased number ofworkers subject to the work progress.
Concerns of local residents about workers coming from outside and possible worseningof public morals (expressed as opposition to building the accommodation facilities).
Opposition from the local residents when building an accommodation facility for thoseworkers who were decontaminating a site different from their own municipality. Timeloss by commuting over a long distance was another difficulty in this case.
Traffic congestion along the route between the accommodation facility and the worksite during commuting times.
To cope with these difficulties, the following measures were taken by some decontamination
business operators.
Making school buildings and public facilities, etc. the earliest decontamination targets
so that they could be used as accommodation facilities close to the work site.
Having local municipalities provide a piece of land in their possession todecontamination business operators for the purpose of building an accommodation
facility for workers.
Prioritizing contracts with local workers who can commute from their own residences.
Implementing institutionalized patrols of accommodation facilities.
Taking measures to mitigate the commuting burden by providing commuter buses,
operating them on a time-shifted schedule (time-shifted duty hours of workers) andother means.

[Planning] workers approximately 500 persons
Within Fukushima Prefecture (commuter) 300persons
Outside Fukushima Prefecture (lodging) 200persons
・Setting accommodation facility for workers at
playground in Miyakoji middle school(approximately 200 persons)
Increase of workers
・Renting “Boy Scouts lodge for Nakano District inTokyo”(approximately 150 persons)■Distribution of accommodation facility for workers
・Within Fukushima Prefecture 60%(within Tamura city 22%, others 38%)
・ Outside Fukushima Prefecture 40%

Figure 4-14 Example to secure accommodation facilities for workers (plan and result).
213

Figure 4-15 Example of an accommodation facility for about 350 workers.

（7） Processing of household wastes, foods, water, etc.
Special Decontamination Areas include the places damaged by the earthquake and tsunami.
In such places, some of the infrastructures are still not available, including roads, watersupply and sewerage systems, general waste treatment facilities, etc. and business activities
such as retailing have been halted since the residents were evacuated.
In the usual situation, each business operator is responsible for disposing wastes produced
by workers (lunch boxes and other garbage). However, general waste treatment facilities,
industrial waste treatment facilities and sewage treatment facilities were out of service,having been damaged by the earthquake and tsunami and not restored. Neighboring
treatment facilities had to bear the load instead, but their treatment capacities were exceeded.
Consequently, the decontamination business operators were asked in the early stage to treat
the garbage and sewage by themselves. In a later stage, the government, the ordering party,
exchanged information with local treatment facilities, in which the amount of sewage andwastes was predicted together. Measures were jointly taken to coordinate the balance sheet ofthe volume to come from the decontamination work plan and the processing capacities oftreatment facilities in order to avoid adverse impacts from the activity.
Regarding meals and water, an independent rest house was set near the working site ofdecontamination activities from the viewpoint of radiation protection. Workers were strongly
instructed to stay inside the rest house while eating meals and drinking water, not outside on
the decontamination site. If a rest house was not available, they were instructed to eat anddrink inside a vehicle.

214

4.3. Acquisition of Residents’ Consent
This section describes the efforts made in advance surveys, acquiring consent, andafter-action reporting, and presents the challenges identified through these processes by theordering party (MOE) and business operators for decontamination work in the Special
Decontamination Areas.

4.3.1. Efforts Made by the Ordering Party (MOE)
In implementing decontamination and other related works, the MOE tried to acquire priorconsent of stakeholders such as residential land owners (people who have the right to claim
the authority to prevent the decontamination and other related works from being taken for
the target objects to be decontaminated such as land, structures on it, or standing trees orother fixtures rooted on it) with regard to the details of said works.
In Tamura City, advance surveys and consent acquisition activities could start ahead ofother municipalities. The MOE personnel involved themselves in the advance survey andconsent acquiring initiatives. The knowledge and experience they obtained were applied andreflected in activities in other municipalities. Since the MOE personnel who could be allocated
was limited, the advance surveys and consent acquisition were commissioned to private
operators for cities other than Tamura City. The MOE personnel took the role to confirm theresults of the commissioned work.

（1） Advance surveys
After collecting and organizing the relevant information on land, houses, etc., advancesurveys of properties (field surveys) were performed prior to conducting the decontamination
work.

1）Collecting and ordering information on land and houses
Stakeholders were identified, using such sources of information as real estate registers,
land and house records, house drawings and land lot maps, and the relevant information wascollected about land and houses by marking residential boundaries (on a land owner basis)and buildings onto maps and aerial photographs.
A great deal of effort was needed in solving the following issues for confirmation with thecooperation of local municipal personnel, local district officers, land planning unions, etc., inorganizing the relevant information on land, houses, etc.
Some house drawings were very old or did not exist.
A particular stakeholder could have more than one piece of land and more than one
house. It took time to consolidate registered owners to one name for identifying what
properties were actually owned by that particular stakeholder.
There were diverse cases with complicated relationship of rights, possibly because ofinheritance: more than one owner had the right to one piece of land; registeredinformation had not been revised after the death of stakeholder(s); a person or persons
different from the registered owner(s) used and managed a piece of farmland for
agricultural activities. In particular, it took much time to identify stakeholders andacquire their consent in a situation in which the stakeholders were not living at thesite.
2）Property surveys prior to decontamination work
It was necessary to identify in the document of consent the target objects to be
decontaminated by photos, drawings and other means. Therefore, decontamination business215

operators conducted radiation monitoring surveys and damage surveys of buildings as part oftheir advance property surveys (field surveys) ahead of the drafting of the document ofconsent prior to decontamination work.
Decontamination methods to choose depend on the target object to be decontaminated and,the materials and state of the object’s surfaces. As part of the radiation monitoring survey,
measurements were made at selected points which could represent each target object to be
decontaminated in the survey area.
It was necessary to confirm with the stakeholders the status quo of buildings and otherproperties prior to conducting the decontamination work. Given that they might have been
completely or partially destroyed, or partially damaged due to the earthquake and tsunami,
the state of damage to each building was visually inspected by qualified architects or
emergency risk assessment officers, and photo records were prepared for each building
subject to decontamination.
Prior consent was needed to enter the private land for advance property surveys (fieldsurveys) ahead of decontamination work and the surveys could be conducted only where it
had been granted.

（2） Drafting the document of consent
Personnel of the MOE or a private business commissioned for acquisition of consent
prepared the “Building Current Condition Diagram,” which used photos to explain to eachstakeholder the appearance of buildings and damage conditions, and the “Decontamination
Plan,” which showed the buildings and the scope of land subject to decontamination and thedecontamination methods to be used.

Figure 4-16 Example Decontamination Plan108.

（3） Arranging special considerations, visiting the site
Upon drafting the document of consent, the stakeholder(s) was (were) invited to the site,

108Source: "On-site explanation of the Decontamination Plan and request for understanding of

implementation for decontamination work" (http://www.katsurao.org/uploaded/attachment/6.pdf ) (Figure
4-17 to Figure 4-18 have the same source.)216

where the drafted document of consent was explained and the scope of the decontamination
work was checked against the actual property. The stakeholder(s) was (were) then consulted
on any special conditions for decontamination, the items that they wanted to include in theliving spaces for decontamination (e.g., shrines built by ancestors on a nearby hill, mountainstreams, access paths thereto, etc.) and the items that they did not want to decontaminate(gardens with garden trees and moss that had important personal meanings to thestakeholder(s)). Once all these were arranged, they were appended as special conditions in thedraft document of consent (if necessary, the contents in the draft document of consent wererevised).

（4） Acquisition of consent
When the stakeholder(s) could confirm the contents of the “Building Current Condition
Diagram” based on its explanation using photos, the appearance of the buildings and thedamage conditions, they were asked to sign and affix their personal seal to the “Current
Conditions Report” (Figure 4-17). Further, when the consent was obtained to implement
decontamination work in line with the scope of the target buildings and land and thedecontamination methods thereof set out in the “Decontamination Plan” (including special
considerations), stakeholders were asked to sign and affix their personal seal to the“Decontamination Implementation Consent Form” (Figure 4-18).
Stakeholders were asked to sign and affix their personal seal to the consent forms at thesite, but in some cases follow-ups were needed when they wished to consult with their familyor neighbors. There were also cases, in which their consent could not be obtained due todissatisfaction with decontamination methods or other reasons.

217

Figure 4-17 Example of Current Conditions
Report.

Figure 4-18 Example of Decontamination
Implementation Consent Form.

（5） Post-work reports
Upon completion of the decontamination work, a post-work report was made on the work
results based on the decontamination implementation plan. Post-work radiation monitoring
was carried out immediately after the work completion in order to prepare for checking
afterward whether the decontamination effect was maintained. With this, thedecontamination work was considered to have been completed, but radiation monitoring was
carried out thereafter on an ongoing basis.
In the meantime, sometimes difficulties arose with stakeholders originating from gaps
between their expectations and the realities of decontamination work. Basically, these gaps inunderstanding should be solved through resident briefings and the decontamination consent
acquisition processes, but actually there were cases which could not be solved; radioactive
cesium could not be completely removed due to the conditions of the land in use and thelimitations of decontamination methods used, or complete recovery was not possible after
topsoil removal of agricultural land or the felling of ornamental garden plants. The following
are some typical examples of issues raised by stakeholders from these gaps in understanding.
There were locations where radiation doses did not decrease even after thedecontamination work had been done.
Some areas were not decontaminated, which included steep slopes and the like.
No decontamination work was done if radiation doses were low before the work.
Trees and branches were not cut down.
Tiles were not replaced with new ones.
Decontamination work did not recover the land to the condition suitable for commercial
agriculture use.
Unwanted household goods were not removed as trash.
Houses damaged by the earthquake and tsunami were left as they were being218

contaminated by radioactive materials. They should have been dismantled andremoved, since they could not be used.
If decontamination work were to be done beyond pre-defined standards at the request ofparticular stakeholders, such exceptional service could impact the implementation of theentire decontamination project in terms of the relationships with other stakeholders. Steps
were taken for work supervisors themselves, not the decontamination workers, to listen to
the stakeholders’ claims, consult with MOE supervisors on decisions and leave a record of
the decisions, in order to ensure consistent and rational decisions concerning the project asa whole.

219

4.3.2. Efforts Made by Decontamination Business Operators
Tamura City could undertake advance surveys and consent acquisition activities ahead ofother municipalities, as described before. The MOE personnel involved themselves in these
activities, and the knowledge and experience they obtained were then used and reflected in
the work in other municipalities. In some other cases, private entities commissioned by the
MOE carried out advance surveys, field surveys and consent acquisition activities prior to thedecontamination work ordered by the MOE.

（1） Advance surveys
In some cases, private entities (e.g. entities having measurement technologies or IT/dataprocessing technologies) carried out advance surveys upon consignment by the MOE, before
decontamination work in the Special Decontamination Areas was started upon order of the
MOE. In one example, the data relevant to land and houses were processed, using GIS
technologies in the procedures shown below. By creating a database, the next steps of fieldsurveys and preparation and distribution of the document of consent were carried out more
efficiently.
Creating ortho-images for the target area, with roads, coverings, vegetation, land andhouse outlines in a scale of 1/1,000.
Assigning building management numbers for each building on housing maps.
Creating residential boundaries (in units by land ownership) using ortho-images andlot number maps.
Extracting the lot numbers of buildings from existing lot number maps, and matchingthem with housing tax master maps to compile building data and attribute data109（2） Field (site) surveys
In some cases, private entities (e.g. entities having GIS technologies) implemented field(site) surveys, upon consignment by the MOE, before decontamination work in the Special
Decontamination Areas was started upon order from the MOE .
Some entities used PDAs (personal digital assistants) equipped with GPS and input map
information in advance into the PDAs so that on-site the survey workers could more
efficiently input any additional information obtained as they conducted their field surveys109.

（3） Consent acquisition activities
There were also cases where the MOE commissioned private businesses (for example,
environment consulting companies) to conduct consent acquisition activities in parallel withthe decontamination work ordered by the MOE110.
Specifically, private business firms commissioned by the MOE conducted the following
activities under the guidance and supervision of the MOE Fukushima Office forEnvironmental Restoration.
Notifying stakeholders of the results of advance survey activities.
Investigating views on methods for local briefings and other procedures in relation toconsent acquisition.
Arranging schedules for local briefings.
Acquiring consent from stakeholders for decontamination work.
109Source: Asia Air Survey website "Environmental Rehabilitation Assistance Efforts"(https://www.ajiko.co.jp/dl/pdf_tf2014/p12-15.pdf)
110Source: Namie Town "Request for Cooperation in Acquiring Consent for Kitatanashio Administrative
District Decontamination Work" (http://www.town.namie.fukushima.jp/site/shinsai/20140501-01.html )220

4.4. Communication with Local Residents and Local Municipalities
This section presents an overview of challenges, means for solving them, measures taken,
etc. with regard to communication between the MOE, decontamination business operators,
local residents, local governments, etc. in relation to the decontamination work ordered in theSpecial Decontamination Areas by the MOE.

4.4.1. Securing Temporary Storage Sites
Securing temporary storage sites involved a number of challenges and much time to settle,
as it required the understanding of landowners and local residents in order to proceed. This
was the same in Intensive Contamination Survey Areas as it was in Special Decontamination
Areas. The following challenges were encountered in securing temporary storage sites.
Questions over why TEPCO or the National Government did not receive soil and otherthings removed.
Concerns over the safety of temporary storage sites.
Concerns about the possibility that the temporary storage sites would end up being
used as disposal sites without such an agreement having been finalized.
Doubts that even if a temporary storage site was necessary, it would be used for storingsoil removed from other areas, too.
The MOE investigated the feasibility and coordinated the use of state-owned land for
temporary storage sites, and there were cases in which national forests were used as
temporary storage sites. But in many cases, that was not practical. Many state-owned forests
are designated by the Forest Act as forest reserves for conservation. In order to use this land
as a temporary storage site, relevant documents describing the state of trees and the current
state of the forest would have to be examined and necessary procedures would have to betaken to remove the land from designated forest reserves for conservation. Such procedures
needed a great deal of time and cooperation between relevant organizations. Furthermore,since the state-owned forests are generally mountainous, construction work was needed toflatten the land and new access roads needed to be developed and improved in some cases. It
took a very long time to prepare for use of a state-owned forest as a temporary storage site.
Furthermore, much of the secured land was sloped, resulting in less area available for storage.
In other cases, no sufficient place other than the constructed temporary storage site wasavailable for treating trees felled during construction and cut vegetation. Thus, the available
area for storing was reduced.

4.4.2. Launching of the “Decontamination Dial 110 (Hotline)” to Receive Information about
Questionable Decontamination WorkA contact point has been established to receive information by telephone or online fromlocal residents upon witnessing decontamination work that they suspected to beinappropriate (hereafter refferd to as the “Decontamination Dial 110 (Hotline)”).
The MOE checks the information received, issues cautions to decontamination business
operators if the information is correct, and provides explanation on handling of the matter on
its homepage.

4.4.3. Efforts Made by Decontamination Business Operators
The following issues were encountered in communication between decontamination
business operators and local residents or local governments in conducting decontamination
221

work in the Special Decontamination Areas ordered by the MOE.
It was important not only to reduce air dose rates in the living spaces bydecontamination work, but also to mitigate or remove the concerns of residents throughsincere risk communication.
There were many occasions where it was impossible to move forward unless thecooperation of local residents and local governments was available.
People could not be sure how much radiation dose rates would drop under the MOE
decontamination specifications, because there were no specific target values(standards) for radiation dose rates after decontamination.
There were requests not related to decontamination made at the time of site visits prior
to the decontamination start.
Residents could not be present on the decontamination site when the decontamination
work was ongoing. It was thus important for decontamination business operators to betrusted to carry out the items properly as agreed in advance at the time of site visits (noimproper decontamination work).
Reluctance of owners to let construction companies from outside of the area conductdecontamination work.
Indefinite terms for operating the temporary storage sites under unclear site
conditions.
Mass media and other news sources did not necessarily convey a complete picture ofdecontamination activities, or the detailed considerations of decontamination business
operators when dealing with the local community.
In response, efforts as described below have been taken by decontamination business
operators (Figures 4-19 to 4-28).
Pursuing residents’ understanding of the decontamination specifications through site
visits prior to the decontamination work start. MOE personnel joined the advance site
visits, and sincerely explained to them what could be done and what could not be done.
Presenting relevant information on homepages and in town papers jointly published incooperation with the town staff, as part of information disclosure on work status andprogress; these presentations were done with the consent of the ordering party.
Supporting local checks by residents (e.g., decontamination workers carried elderly
residents to site checks).
Opening resident consultation windows and call centers for decontamination work
matters, and sincerely responding to requests and questions from residents.
Arranging site visit tours of decontamination work in each district of a town where all
townspeople had evacuated.
Providing a “common room (chatting room)” and ”public restroom for townspeople”who
returned home on a temporary basis to the evacuation area.
Responding sincerely to residents who came to observe the work upon request andpermission.
Eliminating anxieties of residents by making the staff visible and accessible.
Communicating on a regular basis, building a relationship of trust through a build-up
from small things.
Volunteering to remove snow for home-bound elderly people in areas with heavy
snowfalls.
Holding social gatherings such as rice cake making or golf tournaments for residents
living in temporary housing.
Participating in, supporting and sponsoring events held in the area.
Conducting “blue light” (voluntary) security patrols.
Conducting patrols with safety patrol vehicles (including checks of litter), andpatrolling villages and residences.
Installing traffic safety banners at dangerous curves and narrow roads as traffic safetymeasures.
222

Decorating fences enclosing temporary storage sites with photos or having high school
students draw pictures in order to improve the image of the temporary storage sites.
Installing banners on roads in the decontamination work area, indicating that thedecontamination work was being carried out.

Figure 4-19 Removing concerns by face-to-face communication with responsible staff111.

Figure 4-20 Goodwill exchange with local
residents (example) 112.

Figure 4-21 Call center (example)113.

Figure 4-22 A town paper jointly publishedwith the town staff (example).

Figure 4-23 Homepage (example).

111Source: Taisei Corporation
112Source: Obayashi-Gumi Corporation

113Source: Maeda Corporation (Figure 4-22 to Figure 4-24 have the same source.)

223

・Institutionalizing a dedicated safety management system and patrol activities
・Institutionalizing a dedicated safety management system with executive classmembers of 3 JVs for proper safety and decontamination works
・Daily patrols by the system members
・Regular patrols by the personnel of head office and branch offices【Flow of safety patrols by the system members】
Safety patrols by thesystem members

Confirmationof ex-standardwork

On-site modification
after work
interruption

Special education
Re-confirmation ofwork procedure

Restart of work

Figure 4-24 Dedicated safety management system (example).

Security patrol by the personnel including former Fukushima
Prefectural Police Department personnel as key members(Appreciation prize awarded on December 28, 2012 andDecember 27, 2013)

A“Blue light”
security patrol car

Departure for security
patrolFigure 4-25 “Blue light” (voluntary) security patrol (example)114.

In-village patrol
Area to patrol: Katsurao village(crushing facilities and others)
Frequency: Sunday, all day long
Residence patrol
Dormitory for decontamination workers to patrol: 4placesFrequency: Monday to Sunday, unscheduled patrol
twice a day, from evening to mid-night at dormitories

Monthly security patrol (1st and 3rd Friday)
Area to patrol: Prefectural and national highways,
wide area agricultural roads

Security patrol car

Litter checks

Patrol route in a village

Figure 4-26 Safety patrol (example)115.

114Source: Taisei Corporation and Maeda Corporation

115Source: Okumura-Gumi Corporation (Figure 4-27 has the same source)

224

Security monitoring at adormitory fordecontamination workers

A banner for safe driving (in Katsurao village)
・21 banners at 9 places on 3 nearby highways
・30 banners at 14 locations on village roads/forest roads

Traffic safety banners inpoor-sighted curves(Shikiihata district)

Traffic safety moral-up campaign: Monday to Wednesdayof the first week every month
Traffic safety campaign week: attendance at the patrol
departure of the Tamura Police Station (September 20)
Traffic safety flyer (September 27)

Traffic safety moral-up
campaign

Traffic safety banners innarrow roads (Oozasa
district)

Traffic safety campaign
week: patrol departure

Figure 4-27 Traffic safety banners and activities to encourage good driving manners(example).
Paintings on loading and unloading places for the temporary storage site
Paintings on the fences for the sandbags working place for volume
reduction as part of decoration

Figure 4-28 Decorating fences surrounding temporary storage sites with colorful photos anddrawings (example)116.

4.4.4. Provision of Wide-ranging Information to Local Residents, and related activities
In moving forward with decontamination projects in the Intensive Contamination Survey
Areas, in addition to the Special Decontamination Areas, it was absolutely necessary to
respond to all kinds of concerns and frustrations of local residents about the decontamination
methods and work, and concerns about safety and other issues with regard to establishingtemporary storage sites. The MOE cooperated with Fukushima Prefecture and set up the“Decontamination Information Plaza” in January 2012, near Fukushima Station, in order todisseminate relevant information on decontamination and radiation and to provide anoperation base for experts to carry out informational activities. The Decontamination
Information Plaza has been promoting communication with local communities by providing
various exhibits and pamphlets, arranging workshops or opinion exchange meetings,
dispatching registered experts to local governments or communities upon request, or
responding to consultations from the local residents. The MOE has also made efforts tofacilitate people’s understanding through its website (Decontamination Information Site (inJapanese): http://osen.env.go.jp ) and a call center, and through information dissemination via
the mass media.
In JFY2014, the MOE joined in an advertisement project “Thanks, Helmet” arranged by the“ONE Fukushima” program by eight local mass media entities (newspapers, TVs and radio
broadcasting) in Fukushima Prefectre. This project was planned in order to eliminate
116Source: Maeda Corporation225

negative image toward the decontamination work and decontamination workers, and to
facilitate the understanding of local residents toward decontamination. In the project,“Thanks messages” being addressed to decontamination workers were solicited, mainly from
evacuees of Futaba District (Gun) and school pupils in Koriyama City (elementary schools
and junior high schools). The messasges expressed and conveyed their feelings of thanks andsupport to the decontamination workers. Those messages were distributed to thedecontamination workers in a form of stickers to be attached to their helmets (more than
1,000 messages were collected and more than 3,000 decontamination workers received them).
Many decontamination workers expressed their willingness to return their messages. They
responded in the form of sending large poetry cards with their return thanks messages,
donating planters, volunteer service of paining playing equipment, etc. to the schools. The
activities were widely disseminated through mass media in the prefecture. The project could
facilitate motivating the decontamination workers and raising their morales throughheart-warming communication with local residents and children.

4.5. Project Management Executed by Decontamination Business Operators
Decontamination business operators encountered various issues in implementing
decontamination and related works in the Special Decontamination Areas, upon orders being
placed by the MOE. The problem solving approaches taken by the decontamination business
operators and the ideas behind them are outlined below.

4.5.1. Schedule Control
There are snowbound areas in winter season in the Special Decontamination Areas. In suchareas, no decontamination works is scheduled during snowbound months because there are
special difficulties as listed below.
Big uncertainties cannot be avoided in air dose and surface dose density measurements
in snow-covered environment.
The quality of decontamination work may drop due to difficulty in confirming theeffectiveness of the work results in a snow environment.
The efficiency of surface soil removal work, weeding or other tasks drops because weeds
are knocked down by the snow.
Snow may attach to the soil and other things removed, and the added moisture causes
an increase in weight and volume.
Snow and ice melt when the temperature increases in temporary storage sites and thewater content oozes out and accumulates in the sites. Volume changes of the filled bags
at the sites will occur and may damage the cover sheets and other things.
Transportation by trucks on the slopes to the temporary storage sites in mountainousor hilly locations becomes impossible, and removed materials, which should betransferred to the temporary storage sites, must be left in the work areas.
Also when it rains more than a preset amount, the decontamination work is halted, because
rainfall causes uncertainties in air dose and surface dose density measurements; removed
materials may be carried away or swell and increase in weight; water contents ooze out andaccumulate in the temporary storage sites; rainwater accumulates in the temporary storagesites once the temporary cover sheets are removed for bringing in new waste materials, etc.
The project schedule had to be managed in consideration of those days when
decontamination work could not be done due to adverse weather conditions. Beside weather
conditions, following issues arose for schedule control.
Decontamination work should be completed the soonest in the living spaces.
There would be delays in obtaining residents’ consent and securing temporary storagesites.
226

Responses would need to be made to requests to complete decontamination of shrinesand graveyards before mid-August for O-bon.
Examples of measures to meet these conditions by one decontamination business operator
were:Intensive deployment of large workforce.
Workforce control depending on the decontamination work progress.
Schedule control subject to the request of the local communities.
large facilities
RemarkPreparatory works
Residential areas andthe like, large facilities
Farmland

Schedule overview

Decontamination
works halted due tosnowfalls
Phase

Preparatory
works

Forests, grassland,
lawns, etc.
Roads and the like
Temporary storage
facilities

Post-decontamination
work

Workers(people)Preparatory
decontamination ofgraveyards and shrines

More than 1,200
workers at
maximum

Planning
Results

Decontamination works

Graveyards,
shrinesAmount

Unit

1

set

Test trial

1

set

Fact-finding
survey171,100 piece

Preparation for
construction,planning

Decontaminationof forests andslopes
Decontaminationof residential
areas and the like
Decontaminationof roads
Decontaminationof farmland
Temporarystorage facility

673.5

ha

480 Cases
(80)

ha

(426)

ha

1

set

2013
3

4

5

6

7

2014
8

9

10

11

12

1

2

3

Radiation monitoring before and after decontamination works
Pruning – Sediments removal – Crushing (for volume reduction)
Preparatory decontamination ofstate roads and prefectural roads

Preparatory decontamination ofvillage roads and forest roads

Preparatory decontaminationof farmland
Construction of waterways – Sheet settings – Bringing in andsetting of materials and equipment for custody

Figure 4-29 Example of decontamination schedule117.

4.5.2. Operational Framework for Decontamination WorkAs was mentioned briefly in Chapter 4.2.4 (5), the issues encountered in thedecontamination operation include:
Large workforce of thousands (1,000 to 6,000) needed at one work site118.
Workforce management depended strongly upon the schedule and progress of
decontamination works.
Rapid turnover of workers.
Qualities of workers.
Obtaining the radiation exposure history and health conditions of workers upon
recruiting them.
For instance, there was a case in which the daily maximum number of workers needed was
1,200, far above the planned workforce at the beginning as shown in Figure 4-31, in thedecontamination work for an area with about 120 houses in a residential area, about
1,300,000m2 of farmland, about 1,900,000m2 of forests and about 96 km of roads. In suchcircumstances, the decontamination business operator took such measures as follows.
Promoting recruitment of local workers.
Employing local farmers (utilizing agricultural machinery already in their possession).
Recruiting workers nationwide.
Providing periodic and continuing education of new workers for the field work.
Providing full medical check-ups at designated hospitals with costs paid by the primarycontractor.

117Source: Kajima Corporation and Okumura-gumi Corporation (Table 4-30 has the same source.)
118 Examples:

About 2,700 workers were needed at the peak in a site of about 17,000,000 m2 fordecontamination work (about 470 houses as well as farmland, roads and other items were included), while
about 3,000 workers were needed in a site of about 14,000,000 m2 (including about 1,270 houses) or about
2,200 workers in a site of about 8,300,000 m2 (including about 1,180 houses).

227

Operational organization

Site Representative (Site Manager)

Integrated Office(43persons)

Deputy Site Manager

Section Head
( Otakizawa)

Section Head
(Chimijyou)

Section Head
(Baba)

Section Head
(Aiko)

Section Head
(Ogita)JV Staff

JV Staff

JV Staff

JV Staff

JV Staff

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

The area to decontaminate was divided into five (5) sections

Con
tract
ors

Section Head

Section Head（Roads, temporarystorage facilities）(Radiation related
matters)

JV Staff

JV Staff

Con
tract
ors

Con
tract
ors

Con
tract
ors

Con
tract
ors

＊One section was managed by 5 to 6 JV staff.
＊Total of 43 staff managed each office,including those for safety, engineering andadministration.

1work zone
(21persons)
Forest2work zone
(21persons)resident

3work zone
(21persons)
Forest4work zone
(17persons)resident

Kaminogawa

Kaminogawa

Kamikazurao

Kamikazurao

NogawaNogawaNatsuyu

Ochiai

Shimokazurao

Shimokazurao

IwakadoKouyachiDaihouOozasaNatsuyu

5work zone
(21persons)
Forest6work zone
(4persons)Temporarystorage

OchiaiJizousawa

KouyachiOozasaIwakadoDaihouFigure 4-30 Example of operational framework for decontamination work.

[Planned] total workforce: about 70,000
The site divided into five (5) sections.
About 100 workers per each of five sections,
totaling about 500 workers at daily maximum
・Difference in workload is outstanding inforests and others
・Small transfer to vehicles for transport(hand carry, by machines)
・To keep the goal of “completing
decontamination by the yearend”[Record] total workforce: about 120,000
The site divided into five (5) sections.
Daily maximum of 1,200 workers deployed for the site.
Figure 4-31 Example of recruiting and deploying workers (plan and result)119.

The prime contractor signed an employment contract with local farmers
for decontaminating their own farmland as decontamination workers
Time was needed to sign
the employment contract,
because of difficulty inreaching an agreement
in wages or conditions of
employment, or in
obtaining theirunderstanding of social
insurance or taxes.

Figure 4-32 Example of employing local farmers120.

119Source: Kajima Corporation

120Source: Obayashi Corporation

2284.5.3. Sharing of Information and Safety Precautions
One issue was how the relevant information and safety precautions could be sharedcompletely between many contractors and the large number of workers involved, not onlywith the primary contractors (some of which were Joint Ventures (JVs)) and their personnel.
The complete sharing of relevant information between relevant organizations was also achallenging issue. An example to solve such issues can be found in the following case for one
decontamination business operator.
Information sharing meetings were periodically held with relevant organizations
concerning the decontamination work, its progress and other relevant information.
Participating organizations were: the MOE Fukushima Office for Environmental
Restoration, local municipalities, the Labour Standards Inspection Office, police andfire stations, and the primary contractors (JVs).
Plenary or separate morning assemblies and daytime assemblies were regularly held
for thorough dissemination and sharing of information at different levels between the
primary contractors (JVs), subcontractors and individual work sections.

Progress review meetings
The project progress was regularly checked and relevant information wasshared between the Fukushima Office for Environmental Restoration, Naraha
Town, the Tomioka Labour Standards Inspection Office, Futaba Police
Station, and the relevant decontamination business operators.

Figure 4-33 Photo taken at a project review meeting121.

121Source: Maeda Corporation229

13:00Daytime
昼 Assembly
礼

11:30

Decontamination
作業間
Work Coordination
連絡調整会議Meeting
JV & First
Subcontractors
JV・一次協力会社

各工区で実施To be held at individual（JV・全協力会社）
sections (JV & all contractors)

Decontamination
除染作業
workers
従事者

17:30

JV
assembly
JV打合せ
8:00

Site
Manager, Deputy Site
所長・副所長Manager,
・各工区長Section Heads

Morning
朝 礼
Assembly
To be held at各工区で実施
individual
sections (JV （JV・全協力会社）& all contractors)

各工区毎の
Meetings
at
打合せ
individual
sections

Section Heads, JV Staff,
各工区長・JV職員
First
Subcontractor
・一次会社職長
ForemenFigure 4-34 Example flowchart of dissemination and sharing of information and safety
precautions122.
Some decontamination business operators prepared specific work procedures fordecontamination workers to refer to during actual work. These work procedures elaborated
on the decontamination methods presented in the Decontamination Guidelines, technicalspecifications and other relevant documents. The work procedures also provided
information concerning, not only the decontamination skills, but also the supervising
responsibilities of decontamination business operators, application methods of materials
and equipment of decontamination work, safety checks and precautions to be taken, andresponses to be taken in an emergency or unusual situations, etc.
These work procedures are updated based on experience and knowhow obtained from theactual decontamination work. When updated, actions are taken to disseminate the new
information to the decontamination workers on the job (for instance, holding a meeting fordisseminating and sharing the information).

Periodic education
By reviewing the updated work proceduresat the periodic education opportunities, theworkers’ understanding of work contents shallbe facilitated.

Upon noticing a flaw
while on duty,
updating of work
procedures shall beprompted

Work procedures update
JV OfficeRule formulation for updating work proceduresWork flows shall be clearly defined for
updating the work procedures, thus preventing
irrelevant work not included in the work
proceduresWork procedures updating flow
Standard dissemination flow ofwork procedures

Information dissemination
to JV staff for each section

Work halted

Contractors’ workers
ReportingContactors’ work leadersWork sites

Work procedures dissemination meetings
Whenever the work procedures are updated,a dissemination meeting shall be held witheverybody present
At the dissemination meetings, the work
procedures (Vol. 1, Vol. 2 and Common) shallbe used.

Information dissemination
to work leaders

ReportingUpdating work
procedures
Information dissemination todecontamination workers

Reporting・Consultation/coordination

Deputy Site Director andTechnical Supervisor

JV staff & Section HeadApproval
ReportingApproval

Holding a work
procedures
dissemination meeting

CustomerWork resumed

Figure 4-35 Example flowchart of information dissemination and sharing of updated work
procedures123.

122Source: Kajima Corporation
123Source: Maeda Corporation

230

4.5.4. Hiring and Separation Management of Workers
In the hiring and separation management (upon recruitment and upon separation) ofworkers, the decontamination workers are required by law, as mentioned earlier, to receive
internal exposure measurement for radiation protection and exposure control before and after
the employment by the decontamination business operators. For the internal exposure
measurement, the whole body counters (WBCs) installed by the MOE were available at nocharge to the workers and decontamination business operators.
Newly employed workers are to receive basic and special education upon beginning thedecontamination work, including:
To recieve internal exposure measurements by a WBC.
To receive eduction about decontamination and related works by using educationalslides, DVDs and the like.
To receive education on and learn the matters concerning safety principles, safety rules
and the like through lectures given by JV safety personnel at the site office.
To learn specific work procedures through attending the work procedures
dissemination meetings held at the site office, assembly halls, or the like.

Radiation education, WBC

Education: at Kajima Hirono Office,
WBC: Hirono Town, Naraha Town

Educational slides, Safety andsanitation educational DVD“Safety and sanitation manual fordecontamination work,” Special
education movie fordecontamination works, etc.

Education for fresh workers

at site office

Education by JV safety staff, Site safety
policyWorking procedures
dissemination meetings,
safety education

at site offices, assembly
halls, etc.

Working procedures dissemination meetings bycontractors’ foremen and JV personnel,
Dissemination of information on accidents relevant
to decontamination work, Education of safety rules

Figure 4-36 Example flowchart of education flow for decontamination workers124.

4.5.5. Protection from wildlife
Concerns about protecting from wildlife also existed. There were cases in which
decontamination business operators removed beehives and had to prepare protective
equipment and medications in advance, or they consulted with the municipal offices for how
to deal with livestock such as cows that had been abandoned by owners when evacuation
orders were given.

124Source: Kajima Corporation

2314.6. Radiation Protection Measures
4.6.1. Ionizing Radiation Ordinance for Decontamination
As mentioned earlier, the Ministry of Health, Labour and Welfare (MHLW) issued the“Guidelines on Prevention of Radiation Hazards to Workers Engaged in Decontamination and
Related Works” on December 22, 2011, as the measures required to ensure the safety ofworkers, in combination with the Ionizing Radiation Ordinance for Decontamination (TheGuidelines were partly amended on June 15, 2012.). The Guidelines specify the following:
personnel subject to exposure dose control; methods of control administration of exposure
dose measured; measures to decrease exposure dose; measures to prevent contamination fromspreading; measures to prevent internal exposures; education for workers; measures toensure health; and safety and sanitation management system.125
In the decontamination work, radiation protection measures are provided to thedecontamination workers pursuant to the Ionizing Radiation Ordinance for Decontamination.
The MOE arranged the following measures in order to ensure that decontamination workers
and operators observed those measures set in the Ionizing Radiation Ordinance for
Decontamination.
Holding workshops for potential decontamination workers.
Stipulating in the decontamination order contract the condition that thedecontamination business operators must observe the Ionizing Radiation Ordinance for
Decontamination.
Preparing methods to estimate necessary expenditures and reserve budgets fornecessary equipment for radiation protection.
Requiring decontamination business operators to include relevant descriptions
concerning technological concepts of workers’ radiation protection in thedecontamination plan documents when applying for National Government work under
direct jurisdiction of the MOE.
In the meantime, the decontamination business operators took the following measures forradiation protection.
When designating a new decontamination work area, the air dose was measured before
workers engaged in the decontamination work. If micro hot spots were recognized, they
were clearly so indicated by markings or setting fences, or the access to the hot spots
was controlled.
Where the air dose rate exceeded the level to cause 50 mSv/y, the workers were
instructed to wear full-face masks, protective clothing and other items in order toprevent dust containing radioactive materials from attaching to the workers.
In work areas, where the air dose rate was below the level to cause 50 mSv/y, too,
workers were instructed to wear half-face masks.

4.6.2. Surface Contamination Inspection (Screening)
The Ionizing Radiation Ordinance for Decontamination obligates decontamination business
operators to conduct surface contamination inspections (screening) in order to prevent
contaminants containing radioactive nuclides from being brought out from the work areas.
The difficulty in the actual screening operation was to conduct the screening inspections fora large number of workers, particularly at some specific time periods (lunch time, at the endof the day, etc.). There was a case in which the screening process was automated for better
efficiency and worker-power saving at the times for breaks, lunch or the end of the day.
In measuring the surface contamination densities, as mentioned in 4.1.3 (5) 1), it isrequired to use surface radiation contamination survey meters which meet the performance
125Source: Ministry of Health, Labour and Welfare (MHLW), Guidelines for Prevention of Radiation Hazards

for Workers Engaged in Decontamination and Other Radiation Works (June 15, 2012)232

requirements and other conditions specified in JIS Z 4329 and the measured data by such
survey meters are to be recorded as the counting rate (cpm). In reality, however, the data
varied among measurement devices depending on their respective measurement efficiencies
and areas of measurement.

Screening facility at the
Tomioka Town gymnasium(place for recess)Finger print
authentication device

Figure 4-37 Photos of workers undergoing automatic screening126.

4.7. Education and Health Care for Decontamination Workers
4.7.1. Education of Workers
Decontamination work does not usually require ordinary workers to be highly experienced
or have special skills; although it is true that only certified workers with particularqualifications or skills may be engaged in operating heavy machinery for carrying heavy
objects or scraping soil off, transferring wastes, etc., or for tasks done at high places using
aerial lifting equipment, such as needed in washing and wiping processes for roofs and others.
But even ordinary workers are required to understand the basics of decontamination andfollow the pre-determined working procedures. Otherwise, the expected decontamination
effects may not be obtained, the decontamination effects may even drop, the amount ofmaterials to remove may increase or even trouble may take place with the local residents.
Furthermore, it was foreseen that most of these ordinary workers had no prior experience indecontamination and lacked knowledge or experience in radiation protection.
Before the Great East Japan Earthquake, ordinary citizens in Japan did not usually haveknowledge of radiation nor were they familiar with decontamination. It was impossible tosecure a large workforce consisting of workers who had had experience and knowledge about
radiation and decontamination.
Certain qualities are also required of decontamination workers, not only their availability
in large numbers. Education was the only way to foster knowledge about decontaminationand promote the necessary qualities among the workers. Before commencing decontamination
works, the decontamination business operators provided new workers with basic and special
education pursuant to the Ionizing Radiation Ordinance for Decontamination. In addition,
workshops, training and other activities were periodically held about safety as well as daily
morning activities on risk potential prediction and mutual checks of protective equipment
before commencing the day’s work. Other activities included collection of success stories andfailures in order to develop the workers in broad areas. The decontamination business
operators promoted special education smoothly and easily using educational movies on theYouTube produced by the MHLW for decontamination and related works. Workshops on
126Source: Kajima Corporation

233

decontamination work arranged by the Fukushima Prefectural Government and MOE for theworkers and work leaders also facilitated the education activities done by thedecontamination business operators.
Education activities should be repeated. Decontamination methods and knowhow of site
works are improved day by day. Successful experiences as well as failures, near-miss casesand other experiences from work sites were used for ensuring safety through periodic
education opportunities after decontamination work was started by new workers. A system
was developed that allowed supervisory personnel to check on-site that each worker took
notes when attending the education activities, submitted reports after workshops andrecorded their attendance at the educational programs on their worker ID cards.
The following are examples of educational programs conducted for decontamination
workers127.

127Source: Maeda Corporation (Figure 4-38 to Figure 4-44 have the same source.)234

（1） Educational programs upon beginning the jobs
1）Safety education for newly employed workers
Safety education for newly employed workers included: explanation of the jobs to do using
flowcharts, safety policies at the work place; basic rules of safety and sanitation; activities
relevant to safety and sanitation; safety rules when on duty; instruction to be checked using
the WBC; and items to consider with respect to residents.
Program

Key contents

1

Confirmation of employment
contract

Confirmation of the company to belong to, minimum wages, special
duty allowance, medical checks

2

Outline of the jobs

Explanation of an outline of jobs to do

Safety policies at the working
place

Explanation of safety policies at the working place
Prevention of falling down
Prevention of minor collision between men and heavy machinery
Prevention of minor collision between men and mowers
Radiation and health cares
Other related topics

4

Basic rules of safety andsanitation

Explanation of basic rules of safety and sanitation
Consideration to give to local residents
Dose measurements and contamination inspections
Safety equipment
Practice to carry Identification Card and armband
Information on work plans and work procedures
Smoking, eating and drinking
Responses to take when injured
Traffic rules

5

Activities relevant to safety andsanitation

Explanation of activities relevant to safety and sanitation

6

Tidiness and order

Explanation of the rules to keep working places tidy and in order

7

Risk potential prediction “KY”

Explanation of the process to predict risk potential for sharing
KY: an acronym of “Risk potential prediction” in Japanese)

8

Harmonization with thecommunity

Explanation of consideration to give to local residents

9

Safety rules on duty

Explanation of “22 musts in safety rules” which assembled the cases
experienced and the results found during patrol for each of selected
cases

10

Instruction to receive WBC
checksInstruction of receiving the WBC check and considerations to give.

3

Figure 4-38 Example program of safety education for newly employed workers.

2352）Safety and work education
Safety and work education is conducted by: (i) clarifying concrete work procedures and key
items to ensure safety at the workplace; and (ii) providing a safety manual, which collectedcases of experience and results found during patrols and compiling the information into
“mandatory workplace safety rules.”2. Working policy at workplace
Provide sufficient qualities to meet expectations of the customer and local communities in reliability, credibility andsatisfaction by the work with due consideration to the environment. The work is based on the concept of “Quality first”
and “Customer first” with the fundamental philosophy of “Grasp the customer’s credit by the work in good quality.”
Achieve zero disaster over the whole period of work by upgrading motivation of the personnel and workers toward
safety.
Key execution items for safety at the workplace
1. Prevention of falling down
・To secure the safe working floor and to wear a safety belt and fall arresting devices/equipment fora fixed rope (Brand name Rolip, for instance) when working at an elevated place.
・To fix the ladder and to prohibit a stepladder
2. Prevention of minor collision between men and heavy machinery・To designate the “Keep out” zone around the machine operation area before commencing the work
・To arrange a traffic controller and a guard
3. Prevention of minor collision between men and mowers
・To keep out of the dangerous zone (5m from the mower, 15m between mowers)
・Mutual calls of attention
4. Radiation control and health care・To wear dust masks
・To practice gargling, hand washing・To practice routine conditioning of body rhythm
5. Not to give any concerns to the local people

Figure 4-39 Example chart of work policy posted at a workplace.

Safety rules for decontamination①Rules for drags for cart wheels⑪Rules for scaffold elevators (1)②Rules for construction vehicles (1)⑫Rules for scaffold elevators (2)③Rules for construction vehicles (2)⑬Rules for using stepladders④Rules for working with heavy machinery⑭Rules for using roof Rolip and fixed ropes (1)(note) Rolip (a brand name of fall arresting
device/system for a fixed rope)⑤Rules for access to heavy machinery⑮Rules for using roof Rolip and fixed ropes (2)⑥Rules for the temporary storage facility and others⑯Rules for water supply⑦Rules for unifying wireless (voiced) call signs⑰Rules for the temporary storage facility⑧Rules for working shoes⑱Rules for garbage trucks⑨Rules for using knives⑲Rules for seat belts when using construction
machinery of vehicle type

⑩Rules for using mowers⑳Rules for iron plate floors for cranes⑰Rules for the temporary storage facility (3)1) Fix a rope at 1m from the end of sandbags when stacked in three layers or more.
2) Use a tensioner to fix a rope with a strong bracing cableby implantation single
tubes or the like3) Set a fulcrum point at the middle on the longitudinal direction
4) Set stepping structures/steps on the aisle side and inside5) Workers on duty wear safety belts and connect them to the fixed rope whenworking near the end (to) of sandbags stacked.

⑳Rules for iron plate floors for cranes
Use iron plate floors of 5x10 (1.500mmx3,000mm)
or bigger below outriggers for the cranes ofsuspension weight of 50t or more.
Iron plate floors of
1,200mmx1,200mm orbigger are exceptionallyacceptable only when to set
the cranes on the horizontal
and hard places covered
with crushed stones.

Figure 4-40 Example chart of safety rules for decontamination work.

3）Dissemination of information on work plans and work proceduresWork procedures are based on manuals for individual tasks and disseminated at meetings
for that purpose.

2364）Proper decontamination education
Education for items to note in proper decontamination is conducted at the start of a new job
as well as at the time of regular safety education.

5）On-site education
For better understanding by workers, practical training is implemented on-site.

Figure 4-41 Photo of workers getting practical training at a work site.

6）Other related matters
Special education for decontamination work, which is legally compulsory, is conductedbased on the “Materials for Special Education on Decontamination and Related Works”(Compiled by the Health Measures Office for Ionizing Radiation Workers, MHLW), separate
from the education for newly employed workers. Theoretically, respective contractors should
provide such education to their workers, but the primary contractors (JVs) directly provided it
to all workers as their responsibility.
Newly employed workers wear a special band on their helmets for the first week of work foreasier identification; and responsible personnel and work leaders promote continuous
education and training.

Figure 4-42 Photo showing a newly employed worker wearing the special helmet band foreasier identification.

237

（2） Periodic safety education program
Through providing periodic safety education opportunities, workers are reminded
repeatedly about safety-related items and a safety mindset is strengthened by repeating theitems to note, checking seasonal concerns (e.g., freezing in winter) and exchanging opinions
on safety among workers.

Safety Education (January)① Hazard cases of other companies, other locations, etc.
② “Let’s find risk potential I”(Text by the Head Office, Maeda Corporation)③ Safety DVD “Six legal obligations which nobody can overlook”④ “Let’s find risk potential II”(Text by the Head Office, Maeda Corporation)⑤ Coffee break⑥ Reminding the safety rules at the working place⑦ About proper decontamination⑧ Wages are received appropriately?
⑨ Let’s drive safely this month⑩Prevention of radiation hazards
Maeda & Kounoike JV(Additional responses to decontamination and related works)(12:00 to 16:00 on January 23 and 24)

Figure 4-43 Example of a periodic safety education program.
Issues in providing education for workers included the following.
Among managers and other employees on practical level (foremen, workers) of thedecontamination business operators, there were few decontamination experts who
could be instructors. There were also few persons who were knowledgeable about
radiation and could be instructors.
Quite a few workers had no field experience in civil engineering or construction work.
Education on basic safety management, which is quite common at such work places,
was also needed.
Safety education of workers was especially important, because the work environment
could not be simplified or made uniform due to the size and diversity of the work areas,
for instance, house roofs, forests, slopes, roadside embankments, etc.
A large number of workers had to be educated.
To cope with such difficulties, the following efforts were made by decontamination business
operators.
The decontamination business operators’ personnel were engaged in educating workers
while learning themselves.
Education was conducted every day to a group of about 100 workers.
Engagement of the decontamination business operators’ personnel themselves indecontamination work functioned as an effective education system.
Merit awards were given to conscientious workers.
Video films or other illustrated materials were used for facilitating easy learning.
Group leader training was practiced as the best model group. This training facilitateddecreased quality differences among groups and improved skills of the leaders.
Periodic meetings were organized to exchange opinions between group leaders.
Periodic study meetings were organized for workers.
Patrols and inspections were made by the quality manager and model group leaders.

238

Periodic education program
Continuous education shown in the flow below.
Education was conducted every day to a group of about 100 workers
Education flow of workers
Month 0Month 1Month 2Month nSafety education for
fresh workers

Periodic safety
education

Periodic safety
education

Periodic safety
education
Education on safety andwork rules

Special education on
decontamination

Education on safety andwork rules

Education on safety andwork rules

Education on safety andwork rules

Elaboration on work
procedures

Elaboration on work
procedures

Elaboration on work
procedures

Elaboration on work
procedures

Education on proper
decontamination

Education on proper
decontamination

Education on proper
decontamination

Continued education ofwork leaders

Continued education ofwork leaders

Continued education ofwork leaders

Education on proper
decontamination
Site training

Figure 4-44 Example flowcharts of educational programs for decontamination workers.
Education by using video films and illustrations for easy learning
Education is provided to all workers whenever fresh workers join, or work
contents or working areas are changed, by using video films or illustrations
which elaborate on work procedures in an easily understandable manner.
Decontamination procedures are well disseminated to the workers because
the materials are compiled in an easily understandable manner.

Figure 4-45 Example of an education session for decontamination workers by using video
films or drawings128.

Figure 4-46 Example scenes of safety activities129.

128Source: Shimizu Corporation
129Source: Maeda Corporation

239

4.7.2. Morale and Conscientiousness of Workers
Decontamination work is more or less similar to cleaning work, being different fromordinary civil engineering or construction work to build structures. Decontamination workers
cannot easily get the pleasure of achievement obtained by producing something or completing
construction of something. It is a concern that decontamination workers may be demoralizedin conducting huge numbers of boring tasks while paying attention to radiation protection.
Such factors may cause deterioration in the quality of the decontamination work.
On the other hand, decontamination workers were encouraged by the responses of local
residents to the outcome of decontamination work such as weeding, soil scraping or soil
replacement. In such decontamination work, the apparent changes led to the people’s positive
responses: “Fields looked nicer after decontamination”; or “Fields helped me recover hope toreturn home, when weeds fully covering the fields were removed and the surfaces of rice fields
and dry fields became visible after decontamination.
In the earlier stage of MOE decontamination works in the Special Decontamination Areas,
the needs of the decontamination workforce were limited and a significant portion of
decontamination workers were local residents under contract. They had high morale and wereconscientious with clear aims to decontaminate their own land. It can be said that theybrought about good tension in the work groups.
One decontamination business operator placed importance on sharing empathy with thelocal residents and developing teamwork spirit among decontamination workers. The
operator took the following measures in order to upgrade the quality of decontamination workby clearly identifying the objective of the work as recovering environmental conditions for the
residents to return home.
Expressing strong hopes toward restoration by placing banners in public places.
Reading slogans about the decontamination work out loud, with all workers responding,at daily morning assemblies.
Encouraging mixing with other work group members at safety campaign events.
Facilitating understanding of the construction workers (primary contractor’s personnel,
secondary contractors’ personnel and other workers) toward restoration by having
them live in the area to be decontaminated and arranging for them to mix with thelocal people.

Figure 4-47 Banners expressing hope and progress toward restoration of the area130.

130Source: Taisei Corporation

240

Figure 4-48 Photos showing daily morning assemblies with reading of a slogan and responseby all workers131.

4.7.3. Personal Exposure Dose Management for Workers
For external exposure dose management, some decontamination business operators used,besides personal dosimeters, the access management system and other systems connected tothe air dose measurement in the workplaces. Specifically, individual workers wore personal
dosimeters, and read the indication before and after the day’s work for measurement of the
exposure dose for that day. The measured data were processed together with the information
stored in the database and used for personal exposure dose management.
For internal exposure dose management, WBCs were used. Decontamination workers are
required to receive periodical medical checks for ionizing radiation when engaged indecontamination and related works as well as the WBC measurement for internal exposure
management. Decontamination workers are also required to receive such checks upon
employment, upon transfer to different work locations and every six months. The measured
data were processed together with the information stored in the data base and used for
personal internal exposure dose management.
Figure 4-49 illustrates the results of personal cumulative exposure dose of decontamination
workers in decontamination model projects in the Difficult-to-return Area (the area where itis expected that the residents have difficulties in returning for a long time). The
decontamination model projects in the Difficult-to-return Area were conducted in Futaba
Town and Namie Town where the air dose rate before decontamination had been as high as
the level to cause about 50 to 100 mSv per year. Protective measures were taken such as not
to have particular individuals work in high dose areas for a long time. Consequently, themaximum average personal exposure was 71.5 μSv/d over the work period of September 1,
2013 to February 22, 2014. This shows that, even if the person continues to work undersimilar conditions for 240 days (the average work days per year), the cumulative personal
exposure dose would be 17.2 mSv, not exceeding the legally set annual dose limit of “100 mSv
per five years AND 50 mSv per year.”

131Source: Shimizu Corporation, Maeda Corporation

241

Total number of workers

An open public spacein Futaba Town
Futaba Kosei General
Hospital

number of workers

Futaba Kindergarten
Ide District
Oobori District
Akougi Districtday

Figure 4-49 Example graph showing personal cumulative exposure dose of decontamination
workers(From the decontamination model projects in the areas where it is expected that theresidents have difficulties in returning for a long time)132.

4.7.4. Medical Checks for Ionizing Radiation and Use of Whole Body Counters
The MOE opened two WBC Inspection Offices, one in Minami-soma City and the other in
Naraha Town (having been moved to Tomioka Town) in order to make sure that workers of thedecontamination business operators received WBC measurements before and after
employment.

132Source: Ministry of the Environment (MOE), Results of decontamination model projects in areas where it isexpected that the residents have difficulties in returning for a long time (June 10, 2014)(https://josen.env.go.jp/area/model2.html ) (in Japanese)242