Protecting Ourselves against
Armed Attacks and Terrorism

Cabinet Secretariat

TableofContents
1 Introduction

1

2
2 When warnings are issued(1) Actions that should be taken immediately after warnings
are issued in the areas under threat of armed attack orterrorism or where the occurrence of armed attacks or
terrorism has been recognized(2) Calm down and collect information(3) When instructions for evacuation are given

3 If there is a sudden explosion around you(1) If a fire breaks out(2) If trapped in the debris
4

5

Points to be kept in mind when evacuating etc. in6accordance with the type of armed attacks(1) Attacks by guerrillas/special operation forces(2) Ballistic missile attacks(3) Landing invasion(4) Aerial intrusion(5) If chemical agents, biological agents, or nuclear
substances are used in armed attacks or terrorist attacks
a. In case of the use of chemical agent
b. In case of the use of biological agent
c. In case of the use of nuclear substances

13
5 First-aid measures for injuries(1) In case of bleeding from cuts(2) In case of burns(3) In case of fractured bones(4) In case of a sprain(5) In case of abnormal skin conditions such as itching or arash(6) In case of the body being set on fire(7) In case of emotional shock(8) In case someone falls

6 Routine preparations(1) Stockpiles(2) Participation in drills(Reference) About civil protection

17

19

1

Introduction

Should an armed attack or terrorism etc. against Japan from the outside
occur, the Government of Japan will address the situation in cooperation
with prefectural and municipal governments etc. However, it is extremely
difficult to anticipate when, where and how such a situation may occur.
Moreover, such a situation affects many people.
If people actually encounter such a situation and fall into a state of
confusion, this might delay response measures and create new dangers,
multiplying the damage. In order for you to judge what action you shouldtake in such a situation, it is important to obtain accurate information bylistening to messages from administrative agencies and information aired on
the TV and radio. In order to avoid danger, it is also essential to act in alevel-headed manner while cooperating with people around you in thecommunity, at work and in the place where you happen to be.
To that end, it would be helpful for you and your family to be always awareand be prepared how to respond to such a situation and know what things
are necessary in such a case.
This brochure describes how you should act in situations of armed attacks
or terrorism etc. and what things you should prepare for such situations on aroutine basis. Such responses have much in common with those needed at
the time of a natural disaster such as an earthquake. We hope that thebrochure will be used along with manuals for natural disasters such as
earthquake and that you will deepen your understanding.

-1-

2

When warnings are issued

In order to protect the safety of citizens, municipal governments in the areas
under threat from armed attacks or terrorism etc. or where the occurrence ofarmed attacks or terrorism etc. has been recognized will alert their citizens, inprinciple, by sounding a siren* of city government disaster administration
radio. The content of the warnings, such as what incident has occurred or is
likely to occur, where the incident has occurred or is likely to occur, and what
action the citizen should take, will be communicated through TV and radio
broadcasting and fire departments' loudspeaker vans.
The residents in areas where evacuation is necessary are notified by thesame method.

"Please evacuate
immediately.""A warning has been
issued. Area xxx has
been under attack.
Please act calmly."* You can hear sample sounds of sirens in the Civil Protection Portal Site
(http://www.kokuminhogo.go.jp/)-2-(1) Actions that should be taken immediately after warnings are issued in theareas under threat of armed attack or terrorism etc. or where the occurrenceof armed attacks or terrorism etc. has been recognized

1 When you are indoors
Shut all doors and windows
Turn off the gas, water, and ventilator
Sit down away from doors, walls, andwindows

2 When you are outdoors
Go indoors, to a place such as arobust building or underground
shopping arcade nearby
People driving a car, please stop the
car and leave it off the road as muchas possible. If you have to evacuate
and leave the car on the road,please park the car unlocked on theleft side of the road so that it will not
obstruct the passage of emergency
vehicles.

(2) Calm down and collect information
Try to gather information by listening
to warnings and other information
reported by TV and radio etc.

-3-(3) When instructions for evacuation are given
Instruction for evacuation given by administrative agencies include
evacuation indoors, evacuation to nearby evacuation center facilities, andevacuation to a distant place across municipal or prefectural jurisdictional
borders. In order to protect your safety, appropriate instructions will be given
based on the situation
When instructions for evacuation are given by administrative agencies,
please act calmly and follow the instructions.
When evacuating from home to an evacuation center based on instructions
for evacuation, the following points should be kept in mind.
Turn off the mains and unplug theelectrical cords. Leave refrigerator's
electrical cord plugged.
Wear stout shoes, long pants, long
shirts, and a hat, and take emergency
supplies and goods with you (Foremergency supplies and goods, see p.
17).
Carry a form of identification, such as
passport and driver's license
Lock up the house
Communicate briefly with the neighbors
Evacuate effectively by following
instructions given by administrative
agencies with regard to evacuationroutes and methods-4-

Water Water

3

If there is a sudden explosion around you

If there is a sudden explosion around you, keep in mind the following points
regardless of whether warnings have been issued or not.
Lay low at once and protect yourpersonal safety
When things are falling, get under asteady table or something similar andwait until they stop falling.
Then, get away from the building
where the explosion occurred as soon
as possible
Act calmly, following instructions givenby the police and fire departments
Try to gather information released byadministrative agencies via TV andradio etc.

(1) If a fire breaks out
Stay low as much as possible and getout of the building immediately
Cover your mouth and nose with ahandkerchief or a similar item

(2) If trapped in the debris
Don't use a cigarette lighter or the like to illuminate the surroundings.
In order to control the dust, don't move around unnecessarily. Cover yourmouth and nose with a handkerchief or a similar item
In order to let other people know your whereabouts, beat the plumbing or
do something similar
Since you may possibly inhale dust, yelling out should be a last-resort
measure.

-5-

4

Points to be kept in mind when evacuating etc.
in accordance with the type of armed attacks

It is impossible to completely define armed attack situations because they may
differ due to the means, size, or patterns of the armed attacks. Under the Basic
Guidelines for Protection of the People, the following four types of armed attack
situations are assumed in order to clarify points to remember for taking measures
to protect the people.
(1) Attacks by guerrillas/special
operation forces

1 Characteristics
May cause damage suddenly.
The damage will generally be limited to a relatively narrow area. But,
depending on the kind of facilities targeted (life-related facilities, such asa nuclear power establishment), it may cause heavy damage.
NBC weapons and dirty bombs may possibly be used.

2 Points to be kept in mind
Since sudden damage may be caused, evacuate indoors once during theinitial phase of the attack and then evacuate properly following
instructions given by administrative agencies.

(2) Ballistic missile attacks

1 Characteristics
It is extremely difficult to be able to pinpoint missile landing areas before
their launch. The missile is expected to land in a short period of time.
Therefore, a warning will be issued to the effect that a launch of aballistic missile is imminent and the content of the warning will be
communicated via TV and radio etc. Then, every time a ballistic missile
is actually launched, warnings will be issued and the residents in thearea where the missiles are expected to land will be alerted by siren(See p. 2).
It is difficult to specify the kind of warheads (conventional warheads or
NBC (nuclear, biological, and chemical) warheads) before they land.
Depending on the kind of the warhead, the damage inflicted will vary
greatly.

2 Points to be kept in mind
Evacuate indoors during the initial phase of the attack and then evacuate
appropriately following instructions given by administrative agencies. In
case of evacuating indoors, evacuate to a robust building or underground
shopping arcade nearby.
-6-(3) Landing invasion

1 Characteristics
In case of landing by ship, coastal
areas are likely to become the initial
target of invasion.
In case of landing by aircraft, airports
near coastal areas are likely to betargeted for attack.
The areas where civil protection
measures should be implemented
are likely to be extensive and theduration of the measures is likely tobe relatively long.

2 Points to be kept in mind
Citizens may be evacuated at the point in time when an attack is
anticipated.
Areas from which residents need to be evacuated may be extensive,
evacuation to a distant place may be necessary, and the period of
evacuation may be long. Evacuate properly by following instructions given
by administrative agencies with regard to evacuation routes and methods.

(4) Aerial intrusion

1 Characteristics
Compared with the case of ballistic missile
attacks, it is relatively easy to detect thesigns of attack but difficult to specify theattack target in advance.
Main facilities in cities and lifeline
infrastructures may possibly becometargets.

2 Points to be kept in mind
Instructions for evacuation indoors are likely to be given widely without
specifying targeted areas. In case of evacuating indoors, evacuate to arobust building or underground shopping arcade nearby. Then, evacuate
properly following instructions given by administrative agencies.
-7-(5) If chemical agents, biological agents, or nuclear
substances are used in armed attacks or terrorist attacks
When chemical agents, biological agents, or nuclear substances wereused in armed attacks or terrorist attacks, since they impair the functioningof the human body, special responses are necessary. Therefore, it isimportant to try to gather information via TV and radio etc and to act
following instructions given by administrative agencies.
a. In case of the use of chemical agent

1 Characteristics
Chemical agents are classified into nerve agent, blister agent, blood
agent, choking agent, etc. according to their property. Chemical agents
generally proliferate in a leeward manner based on topography andweather conditions. Nerve agent that is heavier than air, such as sarin,
spreads as if it were hugging the ground. Some chemical agents have a
distinct smell while some others are odorless. Although they do not
spread from one person to another, their symptoms, such as
inflammation of the eye, coughing, and itching, appear relatively early.
Since chemical agent, if it is touched, put into the mouth, or sucked in,causes adverse effects on the human body, caution should be taken
regarding the chance of it being mixed in food and drink or articles ofdaily use, directly infused into the human body, or sprayed using an
explosive or aerosol.
The national, prefectural, and municipal governments will cooperate to
identify causative agents, specify or forecast contaminated areas, andlead people to an upwind plateau. Since chemical agent does not break
down or die out in the course of time, the national, prefectural, andmunicipal governments will also conduct the decontamination of theareas contaminated by chemical agent and removal of the causative
agent.
If you are likely to have been contaminated, you need to decontaminate
yourself as much as possible and submit to medical treatment.

-8-

2 Points to be kept in mind
Cover your mouth and nose with ahandkerchief, leave the place
immediately and evacuate to a safe
place free from contamination, suchas sealed rooms or an upwind hill.

Close windows, seal them up, andthen move to a room with no windows.
If the building has two or more stories,
evacuate to as high a floor as possible.
Contaminated clothes, watches,
contact lenses etc. should be
immediately disposed of. If you takeoff contaminated clothes inadvertently,
contaminated parts of the clothes may
touch the exposed parts of your body.
If you are wearing a pullover, cut itwith scissors and put the wear in aplastic bag. Then, soap your hands,
face, and body well.

Avoid taking in water and food that are suspected to have been
contaminated until their safety is confirmed.
Follow instructions given by administrative agencies and submit to
medical treatment.
Treatment of people affected by a chemical agent requires prompt action.
If you think you have been affected by a chemical agent, take action
immediately, such as telling the people around you about it and reportingto the police and fire department. This would facilitate treatment laterand enhance the life-saving chances.
-9-

b. In case of the use of biological agent
1 Characteristics
Biological agent refers to micro-organisms, such as bacteria and viruses, that aredesigned to kill human beings and animals or blight plants, and toxins that are
produced by bacteria, plants and animals etc. Biological agents can be dispersed
without being noticed by anyone. Since biological agent, if it is touched, put into themouth, or sucked in, causes adverse effects on the human body, it may be mixed
with food and drink or articles of daily use, directly infused into the human body, or
sprayed by using an explosive or aerosol like in the case of chemical agents.
In the case where infected people move from one place to another during the
incubation period of the biological agent and it is later found that the biological agent
had been sprayed, chances are that the damage has already spread to a wide area.
If an attack is made with a biological agent such as smallpox using human beings asa medium, the damage caused by secondary infection is expected to spread to awide area.
The Government of Japan will strive to prevent the spread of infection by monitoring
the disease through information gathering and data analysis in an integrated manner,
identifying the source of the infection and contaminated areas, and providing medical
treatment in accordance with the characteristic of the disease agent causing theinfection.
If you are suspicious of having been infected judging from information provided byadministrative agencies and symptoms, you should submit to medical treatment andfollow administrative agencies' measure to prevent the spread of the infection.

2 Points to be kept in mind
Cover your mouth and nose with ahandkerchief, leave the place immediately
and evacuate to a sealed room or any
other safe place free from contamination.

Close the windows, seal them up, and thenmove to a room with no windows.
Once you are indoors, take off your clothes toremove contamination from your body, put theclothes in a plastic bag or container, and seal it.
Then, soap your hands, face, and body well.

-10-

Avoid taking in water and food that are suspected of having been
contaminated until their safety is confirmed.
Follow instructions given by administrative agencies and submit to
medical treatment
If there is someone suspected of having been infected close to you, don't
touch the domestic article used by him/her and soap your hands
frequently. The person suspected of having been infected should also
wear a mask.
If you receive a suspicious mail like occurred in the anthrax case in the
United States, don't shake, smell or open the mail. If possible, encase it ina plastic bag and call the police immediately. If you opened the mailinadvertently and a suspicious substance spilled out of the mail, don't do
the cleaning. Instead, cover the suspicious substance with something,leave the room, remove your contaminated clothes as soon as possible,
wash your hands with soap, and call the police at once.

c. In case of the use of nuclear substances
1 Characteristics
Regarding an attack by nuclear weapons, the initial damage would be
the burning of materials, destruction of buildings and radioactive
contamination caused mainly by the heat wave and blast wave etc.
resulting from nuclear explosions. Later, radiation damage would becaused due to the proliferation and descentof radioactive fallout (radioactive ash).
Meanwhile, the explosion of a bomb
designed to cause radioactive contaminationby spreading radioactive substances (a dirtybomb) would not cause damage as heavy asthat caused by a nuclear explosion. However,
it would cause damage through detonating powder and radioactivity.

-11-

2 Points to be kept in mind
In case of a nuclear explosion
Don't look at the flash or fireball resulting from a nuclear explosion, as
you may lose your eyesight.
Hide behind a shielding object at once. If there are buildings, take refuge
in one of them. Underground facilities and concrete buildings are safer.
Reduce exposed parts of your body by pulling the jacket over your headand covering your mouth and nose with ahandkerchief, and get away from the
explosion site. When doing so, avoid leeward
directions and try to go in a direction
perpendicular to the wind as much as
possible.

Close the windows, seal them up, and thenmove to a room with no windows.
If the house has an underground facility,
move to the basement.
Once you are indoors, take off your clothes
to remove contamination from your body, put
the clothes in a plastic bag or container, andseal it. Then, soap your hands, face, andbody well.
Avoid taking in water and foods that are suspected of having been
contaminated until their safety is confirmed.
Since you are suspected of having been exposed to radiation orcontamination, you should follow instructions given by administrative
agencies and submit to medical treatment.

In case of explosion of a bomb designed to cause radioactive
contamination by spreading radioactive substances (dirty bomb)
As in the case of "If there is a sudden explosion around you" in page 5,
get away from the building where the explosion occurred.
There is no peculiar characteristics and it takes a considerable time toascertain the existence of radioactive substances. Therefore, even when
you suffered no external injury, you should follow instructions given byadministrative agencies and submit to medical treatment.
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5

First-aid measures for injuries

If an armed attack or terrorist attack occurs, an ambulance may not be able
to come to the rescue as usual. There may be cases where you are injured,cases where you are fine but your family members or people around you are
injured, or cases where emergency measures are needed. In order to beprepared for such cases, let's study the necessary measures.

(1) In case of bleeding from cuts
Hold the bleeding area slightly tight with a clear
gauze or cloth to stop the bleeding
After confirming that there is no broken bone,raise the wound site higher than the heart
When applying a bandage, keep the affected area
clean
Use vinyl/rubber glove and plastic bags etc. inorder to avoid directly touching the blood(2) In case of burns
Cool the affected area with running waterBe careful not to break blisters
Put a sterilized gauze or clean cloth on the affected area and apply abandage
Don't use medical supplies profusely(3) In case of a fractured bone
If the victim is bleeding, give him/her medical
treatment
Don't move the injured parts too much
Reduce swelling and pain by using ice or cold
compresses
Put in splints* to immobilize the top and bottom of
the fractured segment
In case of arms, immobilize the fractured segmentwith a triangular bandage* Splints can be substituted by sticks, plates,
umbrellas, or cardboard.
-13-

Arm

Splints

Leg

Triangularbandage(4) In case of a sprain
Reduce swelling and pain by using ice or cold compresses
Since a shoe can be used as splinting material, don't take the shoes off.
Immobilize the sprained foot with a triangular bandage or cloth covering
the shoe.
Set the center of the triangular bandage at the bottom of the leg and crossboth ends of the bandage at the ankle (See Procedure 1 ).
Cross both ends of the bandage at the instep and let them pass inward at
the ankle (See Procedure 2 )Tie the ends together at the instep (See Procedure 3 )Procedure 1

Procedure 2

Procedure 3(5) In case of abnormal skin such as itching and rashes
Cut contaminated clothes with scissors in a way contaminants do not touchthe eyes, nose and other parts of the body, and put them in a plastic bag.
Wash your hands, face, and body with soap and water.

(6) In case of the body being set alight
Put out the fire on the clothes with water or fire extinguisher. If they are notavailable, roll on the ground.

-14-(7) In case of emotional shock
If the victim is a child or an elderly person, try to attend on him/her.
Don't overstrain yourself. Take time to rest, sleep and relax with families
regularly.

(8) In case someone has fallen
1 Confirm the safety of the surroundings. If it is not safe, move to a secure"Are you with me?"location.
2 Check if he/she is conscious based on thefollowing procedures
Does he/she respond when addressed to?
Does he/she talk?
Does he/she move his/her arms and legs?
Does he/she respond to pain?

3 If he/she is not fully conscious, call an ambulance.

Since he/she requires immediate medical attention,
call for help by shouting, "Please call for an
ambulance!"
Don't shake or get them up needlessly.

When he/she is unconscious, management of the
air passage is important. Secure the air passage
to ease breathing by placing your hand on his/her
forehead and lifting his/her chin. If the mouth isstuffed with something, remove it.

-15-"Please call for
an ambulance"

4 If he/she has stopped breathing, try artificial respiration.

Pinch his/her nostrils shut with yourthumb and index finger
Open his/her mouth and breathe into
his/her mouth softly at a rate of one
breath per 2 seconds.
If it is inhaled with little resistance,
breathe into his/her mouth once again.
Then, wait for signs of circulation (breathing movement, coughing, or otherbody movement) for 10 seconds.

5 If he/she shows no signs of circulation, try cardiac massage.

Lower boundary ofpressing region
Pressing region

Lay one hand on the other hand, apply
your weight vertically, and press thebreastbone 3~5 centimeters downwards
15 times at a rate of 100 times per
minute.
Body of sternum

One-finger width

Ensiform cartilage

After pressing 15 times, try artificial
respiration twice (See the explanations
above). Repeat this process at regularintervals.

* Methods 4 and 5 should be employed for people aged 8 or older.

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6

Routine preparations(1) Stockpiles
Regarding preparations for natural disasters, like earthquakes, administrative
agencies have proposed a list of emergency supplies and goods that you shouldtake with you when evacuating and a list of stockpiled goods for several days ofself-sufficiency. These preparations would also be useful when you have toevacuate due to the occurrence of armed attacks or terrorism. So make surethat all of the family members have these preparations.

Standard supplies materials

Emergency supplies and goods
Portable drinking water
Foods (pot noodles, canned goods, biscuits, chocolate, etc.)

Family with young children
Water

Valuable goods (deposit book, seal, cash, etc.)

Milk

Passport, Driver's license

Paper diapers

Emergency kits

Baby bottle

Helmet, Hood
Cotton work gloves (thick cotton gloves)
Flashlight
Clothing (sweater, jumper, etc.)
Underwear
BlanketPortable radio, Back-up batteries

Triangular bandage, Sterilized gauze,
Bandage (No. 4 and No.6 Clean towel
are useful)

Match, Candle (wrap in a plastic bag to keep them dry)

Adhesive plaster(large and small)

Fever thermometer

Disposable body warmer
Wet tissue
Writing utensils (notebook, pencil)

Newspapers and large garbage bags can beused to protect the body from cold and rain.

Scissors / Forceps

Antiseptic solution

Over-the-counter drugs(cold medicine, digestive medicine,
painkiller, etc.)

Safety pin

Keep various tools for external injuries and over-the-counter medicines as emergency goods.

Stockpile for several days of self-sufficiency (for about 3 days)
Frequently used items are recommended.
Drinking water: 9 liters (3 liters x 3 days)ha
alp ceri

Rice (pregelatinized rice [alpha rice]*): for 4~5 meals
Biscuits: 1~2 packs

Water Water

Slabs of chocolate: 2~3
Canned goods: 2~3 cans
Underwear: 2~3 pairs
Clothing: sweatpants, sweatshirts, sweater, fleece, etc.
* Pregelatinized rice (alpha rice): Dried rice that is useful as an emergency food as it is ready to serve after pouring only water.

-17-

...And another thing
In cases where chemical agents, biological agents, or nuclear substances
are used as the means of attack, it may become necessary to reduce
exposed parts of your body by wearing gloves, a hat, goggles, and rain coat,etc. and covering your mouth and nose with a mask, folded handkerchief or
towel when evacuating. These things should also be permanently ready.

(2) Participation in drills etc.
The national and local government will implement drills for civil protection,such as those concerning evacuation and relief measures, based on the
Civil Protection Law. We believe you can deepen your understanding of
evacuation in situations of armed attacks or terrorism etc. by fully utilizing
this pamphlet and taking part in drills. We hope that you will deepen yourunderstanding of civil protection.

-18-

(Reference)

About civil protection

What is the Civil Protection Law?
Regarding the security environment surrounding Japan, although thedanger of a full-scale invasion has decreased more than 10 years after theend of the Cold War, Japan is facing urgent new threats to peace andsecurity and diverse situations, including the proliferation of weapons ofmass destruction and ballistic missiles, as well as international terrorist
activities.
In consideration of these situations, the Civil Protection Law (the Law
concerning the Measures for Protection of the People in Armed Attack
Situations etc.) was implemented in September 2004 with the aim ofprotecting the lives, bodies, and property of the people from armed attack
against Japan from the outside.
Under the Civil Protection Law, if the Government of Japan deems that it isurgently necessary to protect the lives, bodies, and property of the people
from armed attack or terrorism etc, the Government will issue warnings andpromptly notify the people that Japan is in a dangerous situation. Relevant
institutions of the national, prefectural and municipal governments will makeevery possible effort to promptly implement measures, such as provision ofcivil protection information, leading of evacuated residents to safety,
establishment of evacuation centers, distribution of relief supplies, relief
activities, and medical services.

-19-System to Protect the People in Armed Attack Situations etc.

National government(Task Force)

Municipal governments(Municipal Task Force)

Issuance of warnings

Notification of warnings
Communication of warnings
to municipal governments(Use of siren, etc.)*Utilization of disaster administration radio, public network, and local authorities satellite communications,and study and development of better communication systems
Instruction of evacuation
Instruction of evacuation
Communication ofInstruction (evacuation routes,
measuresevacuation instructions(areas requiring evacuation, Correction transportation means, etc.)
Leading of evacuatedevacuation areas etc.)
residents(Establishment ofevacuation guidelines)[Directing fire departments,
etc. and requesting police,
SDF, etc. to lead evacuatedresidents]

ReliefRelief instructions

Response to armed
attack disaster

Prefectural governments(Prefectural Task Force)Instruction
Correction

Instructions of response to armed
attack disaster (Instructions Instruction
etc. concerning fire fighting
by the Commissioner of theFire and Disaster Management
Agency)Response to large-scale or special
armed attack disaster(NBC attack, etc.)
Ensuring safety of life-related
facilities
Stabilizing people's livelihood

Providing food, daily
necessities, etc.;
Providing temporary
Reliefaccommodation;
Providing medical
treatment, etc.
Protection against
armed attack disaster Instruction
Implementation of
emergency measures
Establishment of hazard
areas Instructions on
escapeIssuance of urgent
messages

Request for implementation of measures

Cooperation for relief

Fire fighting Extinction offire, rescue of victims

Implementation of
emergency measures
Establishment of hazard
areas, instructions on
escapeRequest for implementation of measures

Comprehensive
Comprehensive
Comprehensive
Comprehensive
Comprehensive
coordination bycoordination bycoordination bycoordination
coordination
Prefectural
Prefectural
Prefectural
Task Force
Request for comprehensive Task Force
Request for comprehensive Task Forces
coordination
coordination
Designated public
institutions;
Designated local
public institutions

Broadcasting of warnings, etc. by broadcasters
Transportation of evacuated residents and critical materials by public
institutions whose service is transportation
Cooperation for relief by the Japanese Red Cross Society
Stable supply of electricity, gas, etc.

The national government, local governments, designatedpublic institutions etc. shall cooperate with each other.

-20-

Residents (cooperation)

Evacuation

Civil protection measures can be roughly divided into three: evacuation,
relief and response to an armed attack.

Evacuation System

If the Government of Japan deems that it is urgently necessary to protect
the lives, bodies, and property of the people from armed attacks, theGovernment will issue warnings and promptly notify prefectural governors.
When it is necessary to evacuate residents, the Government will instructprefectural governors to take evacuation measures.
In response, prefectural governors will issue warnings and give evacuation
instructions. These measures will be communicated to you throughbroadcasts and disaster administration radio.

Present situation andanticipation of armed
attack situations etc.

Present situation andanticipation of armed
attack situations etc.

Matters that should be
informed to residents
and private and publicbodiesAreas from which
residents need to be
evacuated
Areas to which
residents are evacuatedOutline of measures thatshould be taken by
relevant organizations
with respect toevacuation of residents

Instructions of evacuation

Instructions on
evacuation measures

Areas under threat ofarmed attacks orwhere the occurrenceof armed attacks has
been recognizedNotification of warnings

Prefectural government

Issuance andnotification of warnings

National government

Municipal government"A warning has been
issued. Area xxx isunder attack.
Please act calmly."

Areas under threat ofarmed attacks or where
the occurrence ofarmed attacks has
been recognized
Matters that should be
informed to residents
and private and publicbodiesAreas from which
residents need to be
evacuated
Areas to which
residents are evacuatedMain evacuation routes
Transportation meansfor evacuation; etc.

-21-

Areas from which residents need
to be evacuated are xxx. Areas
to which residents are evacuated
are xxx. The evacuation route isxxx. The evacuation method isxxx. The residents are requested
to evacuate immediately
following the lead of municipal
government officials.

Relief System

Relief activities are carried out mainly by prefectural governors incooperation with municipal governments and the Japanese Red Cross
Society.
Provision of evacuation sites
and medical treatment

Collection and provision ofsafety information

Providing temporary
accommodation, food and medical
supplies to evacuated people

Collecting and providing information
on missing persons and thoseseparated from their families.
"Do you know thewhereabouts of
OX? He/she is
my relative."

Governor
Japanese Red
Cross Society

Municipal
mayor

-22-

Response to an Armed Attack
In order to minimize the damage caused by armed attacks, the national
and local governments deal with the situation in a united manner.

Ensuring the securityof facilities, such as
dams and power plants

Containing
contamination of chemical
substances etc.

Establishing hazard areas

Fire fighting

Establishing hazard areas
so that people will notenter dangerous places

Fire fighting to extinguishfire and rescue victims-23-

Roles of Designated Public Institutions
Designated public institutions are institutions that implement civil protection
measures in cooperation with the national and local governments. Amongthem are the Japanese Red Cross Society, the Japan Broadcasting
Corporation (NHK), and other public institutions as well as incorporated
entities engaging in provision of public utilities such as electric power, gas,transportation, and communication.
Designated public institutions play roles related to their operations, such asbroadcasting of warnings and transportation of evacuated residents.
Designated public institutions
whose service is broadcasting

Designated public institutions
whose service is electric power
supply or gas supply

Broadcasting warnings etc.

Providing electric power and gas
in an appropriate manner"Please evacuate
immediately."

Designated public institutions
whose service is transportation
Transportation of evacuated residents and criticalmaterial-24-

Cooperation of the People
The Civil Protection Law stipulates 'The people shall, if requested, strive
to provide necessary cooperation for implementation of civil protection
measures' and 'the cooperation shall be based on people's voluntary will
and shall not be compulsory."
The national and local governments, when requesting peoples'
cooperation, must give due consideration to ensure the safety of thepeople offering the cooperation. If people who offer cooperation are killed
or injured, governments will give compensation for the damage. The
national and local governments will also provide necessary support forvoluntary activities to facilitate civil protection measures performed byvoluntary disaster management organizations and volunteers.

First-aid station"Residents in OO
area, please geton Buses No. 1
to No. 5."

2 Assistance for firefighting,transfer of injured people,
rescue of victims, etc.

1 Assistance for

evacuation of residents
and relief of victims

Distribution, etc. of pamphlet on
health and sanitation information
prepared by public healthcenters,"We'd bettertake part inexercises forjust in case."

3 Assistance for

4 Participation inmeasures to ensure
health and sanitation

exercises toevacuate residents-25-

Measures Concerning Peoples' Rights and Duties

The Civil Protection Law stipulates, 'When implementing civil protection
measures, peoples' freedom and rights guaranteed by the Constitution
shall be respected.' (Article 5 Paragraph 1) and 'if peoples' freedom andrights are to be restricted, the restriction shall be limited to the minimum
extent necessary to implement the civil protection measures and executedby due process of law. It shall not be discriminatory and shall not violate
freedom of thought and conscience and freedom of expression.' (Article 5
Paragraph 2). Based on this principle, measures related to peoples' rights
and duties are restrictively prescribed.
Prevention of theoccurrence of disaster
caused by reactors andhazardous materials etc.

Provision of accommodation, foods etc.,
and medical treatment for relief of
evacuated residents etc.

Response todisastercaused byarmed attack

Prefectural governors

Municipal mayors
and prefectural
governors

Heads of designatedadministrative
agencies etc.
Giving orders
to takenecessarymeasures toprevent theoccurrence ofdisastercaused byreactors andhazardous
materials etc.

Operators ofreactors etc.

Prefectural
Prefectural
governors may
governors may
request medicalorder thepractitioners andstorage ofstaff to engage inmedical supplies
medical treatment. and foods etc.
If medical
and request
practitioners andtheir sale.
staff refuse requests If owners of the
without due reason, materials do notprefecturalcomply with agovernors may
request without
instruct the medical due reason,
practitioners andprefectural
staff to provide
governors may
medical treatment. expropriate thematerials.

Medical practitioners
and staff

Persons handlingthe materials

Operators-26-

Prefectural governors
may use land andbuildings etc. with theconsent of the owners
and tenants of the land
etc. to provide
accommodation toevacuated residents etc.
or open temporary facilities
aimed at providing medical
treatment. If owners or
tenants of the land etc.
do not agree without due
reason, prefectural
governors may use theland etc. without theirconsent.

Municipal
mayors orprefectural
governors
may
temporarily
use orexpropriateland,buildings
etc. asemergency
measures.

Land owners, superintendents offacilities, etc.

Characteristics of Armed Attack Situations
It is impossible to completely define armed attack situations because they may differ due
to the means, size, or patterns of the armed attacks. Under the Basic Guidelines forProtection of the People, the following four types of armed attack situations are assumed
in order to clarify points to remember for taking measures to protect the people.

Landing Invasion

Ballistic Missile Attacks

Characteristics
In the case of landing by ship, coastal areas
are likely to become the initial target ofinvasion.
In the case of landing by aircraft, airports nearcoastal areas are likely to be targeted for
attack.
The areas where civil protection measures
should be implemented are likely to beextensive and the duration of the measures
is likely to be relatively long.

Attacks by Guerrilla/
Special Operation Forces

Characteristics
At the stage of missile launch, it is extremely
difficult to specify the attack targets. Such
missiles land in a short period of time.
It is difficult to specify the kind of warheads(conventional warheads or NBC warheads)
before they land. The damage inflicted differs
widely depending on the kind of warhead.

Aerial Intrusion

Characteristics
May cause damage suddenly.
The damage will generally be limited to a
relatively narrow area. But, depending on thekind of facilities targeted (life-related facilities,
such as a nuclear power establishment), it
may course heavy damage.
NBC weapons and dirty bombs may possibly
be used.

-27-

Characteristics
Compared with the case of ballistic missile
attacks, it is relatively easy to detect the signs
of attack but difficult to specify the attack target
in advance.
Main facilities in cities and lifeline infrastructures
may possibly become targets.

What Is the Emergency Response Situation?
It refers to a situation that requires the national government to take urgent
measures for incidents in which many people are killed or injured by means
similar to armed attack or situations in which people face a clear danger ofsuch situations occurring.
Depending on the kinds of facilities targeted and means of attack, thefollowing examples of situations can be suggested.

~ Classification by Type of Targeted Facility ~Situations in which facilities having
hazardous substances are attacked(Examples)
Destruction of nuclear power establishments etc.
If large amounts of radioactive
substances are discharged, people livingin the vicinity will be exposed to radiationand people who take in contaminatedfoods and drinks will also be exposed toradiation.
Bombing of petroleum refinery complex,
combustible-gas storage facility etc.
Explosions or fire at these facilities
causes damage to people, buildings andlifelines, disrupting socioeconomic
activities.
Attack on ships etc. carrying hazardous materials
Proliferation of hazardous materials
causes damage to people living incoastalareas
anddisruptssocioeconomic activities, such as
closure of harbors and shipping routes,
and contamination of marine resources.
Situations in which facilities where many
people gather and mass transportation
systems are attacked(Examples)
Bombing of facilities frequented by large
numbers of people, railroad terminals etc.
Bombing causes human suffering. Ifsuch facilities collapse, it will cause
heavy damage.

-28-

~ Classification by Means of Attack ~Situations of attacks with substances etc.
capable of killing many people(Examples)
A bomb designed to cause radioactive
contamination by spreading radioactive
substances (dirty bomb)
Damage caused by shrapnel, flying
objects, heat, and flames. If normal cellfunctions are disrupted by radiation, it
could cause cancer in later years.
Dispersal of large amounts of biological agents
Biological agents can be dispersed unnoticed by anyone. In cases where infected
people move from one place to another during the incubation period of the biologicalagent and are later found to have been sprayed with the agent, the chances are thatthe damage has already spread to a wide area. If an attack is made with a biologicalagent that uses humans being as the medium, the damage caused by secondary
infection is expected to spread to a wide area.
Dispersal of large amounts of chemical agents
Chemical agents proliferate leeward by taking topography and weather condition into
account. A nerve agent that is heavier than air, such as sarin, spreads as if hugging
the ground.

Situations in which attacks are made byusing transportation means as a means ofdestruction(Examples)
Suicide terrorist attacks using aircraft
The occurrence of explosions and fires onaircraft causes damage to people,
buildings and lifelines, disrupting
socioeconomic activities.

-29-

Cabinet Secretariat
Situations Response and Crisis Management
Civil protection portal site : http://www.kokuminhogo.go.jp/
Published on July 1, 2006
Last Up Date on July 31, 2014