Silviase/jgov_v1.4_full_ann huggingface dataset:
information on the modes of behavior of international terrorists and other related information. Based on such information, the Immigration Bureau prepares a list of suspect persons and screens terrorists by checking them against this list.

As terrorists are likely to use forged or altered passports, the Immigration Bureau has established document examination offices and installed new high-performance forged or altered document examination devices at major airports in order to improve document examination techniques for detection of forged or altered documents (see Section 3 below).

In addition, based on the Act for Partial Amendment to the Immigration Control and Refugee Recognition Act which was passed in the 164th session of the Diet, foreign nationals wishing to enter Japan from November of this year are required to submit personal identification information (fingerprints and a facial image). This will enable the implementation of further strict immigration examination in order to prevent terrorists from entering Japan.

A large number of illegal immigrants leave their country of origin with genuine passports, then obtain forged or altered passports from brokers in the transit area of Narita Airport, and attempt to illegally enter the United States or other countries using such forged or altered passports. As preventing such behavior is of utmost importance as a countermeasure to terrorism and international organized crimes, the Immigration Bureau has been reinforcing patrol in the transit areas of Narita Airport, Kansai Airport and Chubu Airport in cooperation with the Customs and Tariff Bureau of the Ministry of Finance.

## 2 Expansion of the Coverage of APIs (Advance Passenger Information System) in Accordance with the Requirement of Advance Submission of Passenger Lists

It has become a critical issue in the international community to deter terrorists and members of international organized groups from moving freely across the world and to prevent their entry into the country at the border. Accordingly, in order to promote anti-terrorism measures and public security measures, it is vital to implement immigration examinations more strictly than ever and to stringently prevent suspect persons such as those involved in crimes from entering Japan.

As a part of these measures, since January 4, 2005, the National Police Agency, the Ministry of Finance and the Ministry of Justice have been jointly implementing APIS (Advance Passenger Information System).

APIS was initially operated as a voluntary participation scheme by airlines, resulting in its implementation and submission of passenger information by only a number of the airlines. However, with the amendment to the Immigration Control and Refugee Recognition Act in the 164th session of the Diet, all aircraft and ships arriving in Japan from February 1, 2007 are required to submit the names and other information of passengers and crewmembers in advance.

With this move to require all aircraft and ships entering Japan to submit identification information
of the passengers and crewmembers in advance, there has been a dramatic increase in the submission of such information via APIS from airlines due to its convenience. As a result, it has become possible to check almost all of the passenger information in advance, which has also led to an increase in the accuracy level of examination in advance. The number of cases leading to expulsion order based on APIS information was 66 in January, which was just before the advance submission of information on passengers and crewmembers became obligatory, and the number increased steadily thereafter to 88 in February and 82 in March.

The Immigration Bureau will continue to develop highly precise, strict and prompt immigration examinations by cooperating with related agencies.

## 3 Dispatching Liaison Officers

Terrorists are highly likely to use forged or altered passports when they attempt to enter Japan. Therefore, in order to detect and reject such passports at overseas airports in advance, the Immigration Bureau first dispatched liaison officers to Don Muang Airport in Thailand, an international hub airport, in 2005 and again in 2006 for a period of six months.

## 4 Introducing New Measures

The Immigration Bureau is making efforts to smoothly accept foreign nationals to Japan while reinforcing border measures by implementing strict immigration examinations and introducing and carrying out new measures as follows in order to prevent terrorists from entering Japan: introduction of a secondary examination system to carefully examine foreign nationals who intend to enter Japan for questionable purposes, dispatch of liaison officers (see 3 above) for the purpose of preventing illegal immigrants who use forged or altered passports, and introduction of a pre-clearance system to prevent foreign nationals who intend to illegally enter Japan through an advance check at the place of departure.

Moreover, the Act for Partial Amendment of the Immigration Control and Refugee Recognition Act was promulgated on May 24, 2006, which includes the introduction of (i) regulations requiring foreign nationals (excluding special permanent residents) to provide fingerprints and other personal identification information at the landing examination, (ii) regulations regarding the grounds for deportation of foreign terrorists, and (iii) regulations requiring the captain of ships and other vessels entering Japan to report in advance information regarding crewmembers and passengers.
## Section 3 ☐ Reinforcing Measures against Forged or Altered Documents

## 1 Overview of the Use of Forged or Altered Documents

There is an increasing trend of foreign nationals entering Japan using forged or altered passports, and Japan cannot ignore the fact that forged or altered passports and other documents may be used by international organized crime groups as a means of working behind the scenes for the purpose of trafficking in persons or terrorist acts.

Also, in recent years, forged or altered documents used in the immigration procedures have become increasingly more elaborate and sophisticated. There have been cases where foreign nationals obtained passports under someone else's name through a legitimate procedure using false documents, or tried to enter Japan by using a genuine passport where the holder had a similar face. However, in the latter case the utilization of entry examination using biometrics that will be introduced by November 2007 will have an effect, and the Immigration Bureau is also putting continuous efforts into implementing training sessions for the improvement of technology in the examining of forged or altered documents, and in the collection, analysis and utilization of related information.

Most foreign nationals who intend to enter Japan using such forged or altered documents or dishonest means aim to work illegally in Japan, and some of them may have been exploited by terrorists or international organized crime groups. From the point of view of ensuring public security, it is urgently required in immigration control to establish a strong and solid system to detect such forgery or alteration of documents at the border and to prevent suspect persons, without fail, from coming into Japan. (Chart 18, Table 40)

Chart 18 : Changes in the number of cases of detection of forged or altered documents
Table 40 : Changes in the number of cases of detection of forged or altered documents

(Cases)

Year	2002	2003	2004	2005	2006
Landing	Passport	1,402	1,561	1,011	834	647
Others	985	1,856	1,547	1,622	1,369
Total	2,387	3,417	2,558	2,456	2,016
Departure	Passport	139	142	77	92	70
Others	68	101	53	74	43
Total	207	243	130	166	113
Total	Passport	1,541	1,703	1,088	926	717
Others	1,053	1,957	1,600	1,696	1,412
Total	2,594	3,660	2,688	2,622	2,129

## 2 Installing Examination Devices

In FY 2004 and in FY 2006, the Immigration Bureau installed state-of-the-art devices that can identify the components of ink through the application of light of various wavelengths, in addition to the conducting of enlargement inspection at major airports.

## Section 4 ☐ Promoting IT-Based Immigration Control

## 1 IC Passports

In order to curb the production and distribution of forged or altered passports and to enhance trust with regard to passports, the International Civil Aviation Organization (ICAO) held consultations aimed at establishing international standards for IC passports with a built-in IC chip. In response to this, in Japan, the Ministry of Foreign Affairs started issuing IC passports in which the facial pattern is recorded, with respect to applications filed on and after March 20, 2006.

Following the start of the issuance of IC passports in Japan, in March 2006 the Immigration Bureau started implementing a trial operation and demonstration experiment of a new system to read IC passports for prescribed identification. The bureau is now preparing to handle fully-fledged operation of biometrics examination in terms of both service and operation.

## 2 Submission of Personal Identification Information of Foreign Nationals at the Time of Landing

According to the Act for Partial Amendment to the Immigration Control and Refugee Recognition Act which was promulgated in 2006, foreign nationals wishing to enter Japan are required to submit personal identification information.

With this, it is possible for the Immigration Bureau to identify the applicant and the owner of the passport and to check terrorists against a list of suspected persons in a more accurate and prompt manner.
manner, making it possible to detect terrorists, who will endanger the lives and safety of the general public, at the border with more certainty. In addition, for instance, those who have been deported in the past but attempt to enter illegally again by using forged or altered passports or someone else's passport (so-called "repeaters") can be accurately detected by screening against the data possessed by the Immigration Bureau of fingerprints and facial images of those who have previously been deported. Although the main purpose of requiring the submission of personal identification information is to prevent acts of terrorism, it is also expected to contribute to measures taken by the government to reduce the number of illegal foreign residents and crimes committed by foreign nationals.

## Section 5 ♦ Deliberations on the New System for Residence Management

## 1 Deliberations within the Government

( 1 ) The number of foreign nationals entering Japan is increasing year by year. The purposes for residing in Japan are diversifying, including sightseeing, employment, education, training, permanent residence and so on. Therefore, it is becoming more and more important to accurately understand the state of entry and residence of foreign nationals in Japan.

Currently, the state of entry and residence of foreign nationals in Japan is monitored through the immigration examinations and residence examinations under the Immigration Control and Refugee Recognition Act, as well as through the alien registration system under the Alien Registration Law. However, there are some problems with this current system, such as "the monitoring and management of the residence of foreign nationals being treated in a dualistic manner under two different laws" and "the monitoring of the actual state of residence and employment of foreign nationals residing in Japan not being necessarily sufficient".

(2) On July 19, 2005, the Government established the Working Team on Foreign Residents Management under the Ministerial Meeting Concerning Measures against Crimes. The related ministries and agencies, including the Ministry of Justice considered the ideal methods for monitoring information on the residence of foreign nationals and residence management, and submitted a report on December 19, 2006 on matters considered up to that point to the Ministerial Meeting Concerning Measures against Crimes. The Working Team is continuing with discussions in order to draw a conclusion, representing the Government, for concrete plans.
## 2 Deliberations at the Informal Policy Conference on Immigration Control and the Special Committee on Residence Management

## ( 1 ) Establishment of the Special Committee on Residence Management

Based on the government policy described in the above 1 (2), the Ministry of Justice established the Special Committee on Residence Management under the Informal Policy Conference on Immigration Control, which is the private advisory committee for the Minister of Justice, on February 1, 2007, in order to collect opinions on the management of the residence of foreign nationals from all quarters for reference in the future.

## ( 2 ) Deliberations at the Special Committee on Residence Management

The Special Committee on Residence Management, while hearing opinions from various areas including local public organizations, management, labor and education, has been discussing the ideal system for accurate and adequate residence management. It is looking at improvement of the current system including the revision of relations with local municipalities, the gaining of cooperation from organizations where foreign nationals work or where they are enrolled, and the establishment of a mechanism to enable mutual referencing of information between different administrative agencies.

(3) The result of deliberations at the Special Committee on Residence Management will be reported to the Informal Policy Conference on Immigration Control. The conference will carry out further discussions based on this report, and is scheduled to submit a report to the Minister of Justice by around the end of FY 2007.
# Chapter 3 Entry and Residence Control of Foreign Nationals

## Section 1 ☑ Measures to Promote Tourism in Japan

## 1 Measures for Smoother but Stricter Immigration Examination

It is necessary for the Immigration Bureau to provide smoother immigration procedures for the great majority of trouble-free foreign visitors who come to Japan, while imposing stricter immigration control procedures to prevent foreign visitors from entering Japan if they intend to work illegally. Since more and more foreign nationals will visit Japan in the future as a result of Japan's efforts to promote tourism, the immigration control authorities must satisfy two seemingly contradictory objectives: smoother but stricter immigration control procedures.

In order to realize this by implementing well-balanced landing examination procedures, the Immigration Bureau introduced the secondary examination system and pre-clearance system in FY 2005, and established an examination support team in Chitose Tomakomai Branch Office and Haneda Airport Branch Office in FY 2006 in order to further promote the realization of smoother but stricter examinations.

## 2 Visa Exemption

Visa systems differ from one country to another in terms of procedures and formats. Each nation has a visa system as part of its immigration procedures. In order to promote human exchange, many countries have mutually agreed to exempt temporary foreign visitors from the requirement of obtaining a visa if they are visiting for sightseeing, business, or family visit purposes. Visas are required for the landing examination in accordance with the Immigration Control Act, but the Act also provides that a visa is not necessary for foreign nationals if they are permitted to visit Japan without a visa based on an international agreement or on the Japanese government's notification to their home country.

In Japan, the Ministry of Foreign Affairs is in charge of issuing or waiving visas. The Japanese government has mutually agreed with many foreign governments to introduce a mutual visa waiver program. Generally speaking, the following foreign visitors do not need a visa: transit visitors not intending to conduct commercial activities; sightseeing visitors; foreign visitors intending to call on relatives; amateur sports participants; and temporary foreign visitors for business communication, contract signing, market surveys or after-sales service purposes. However, the visa exemption program does not apply to foreign nationals intending to work in Japan. If foreign nationals visit
Japan without a visa, they are generally allowed to stay in Japan for a maximum period of 90 days. One new measure since April 2006 is that Japan started visa exemption programs applicable to Bulgarian official passport holders, effective from May 1, 2006.

## 3 Revision of the Official Gazette on "Designated Activities" Regarding Working Holidays with Ireland

On June 28, the Japanese government notified the Irish government, in a verbal note, that it will issue working holiday visas to citizens of Ireland who fulfill certain requirements and will grant permission to stay in Japan for a period of a maximum of one year from the date the visa becomes effective to citizens of Ireland who have this visa, and that such citizens will be allowed to engage in incidental work during holiday periods to earn supplemental money necessary for the trip with this measure taking effect from January 1, 2007.

Following this notification, the government added Ireland to the list of countries covered by the working holiday system stipulated in the official gzette of designated activities. (Revised December 23, 2006; enforced January 1, 2007)

## Section 2 ♦ Simplifying the Entry and Departure Procedures of Foreign Nationals

## 1 Enforcement of the APEC Business Travel Card (ABTC)

The APEC business travel card (ABTC) is an approach by the member countries (regions) of the ABTC system to mutually reduce the administrative burden related to visas, in order to facilitate the travel of business persons within the APEC (Asia-Pacific Economic Cooperation) zone. When entering member countries and regions that have validated the ABTC in advance, the business person can pass through immigration simply by possessing a valid passport and the ABTC. When he/she is permitted to land, the business person can stay in the country or region for at least two months or a maximum of three months. At present, 17 countries and regions participate in the ABTC program. $ ^{*} $

Japan started to use the ABTC on April 1, 2003. When an ABTC holder applies for landing in Japan for a temporary visit on business, that person is not required to show his/her visa, and if the immigration inspector finds the person conforms to the conditions for landing, the inspector will
grant him/her permission for landing as a "Temporary Visitor" (90 days).

Upon commencement of the use of the ABTC, in order to achieve smooth examination for landing of ABTC holders, special lanes for ABTC holders were established in the Narita Airport District Immigration Office of the Tokyo Regional Immigration Bureau, the Kansai Airport District Immigration

ABTC

Office of the Osaka Regional Immigration Bureau, and the Chubu Airport District Immigration Office of the Nagoya Regional Immigration Bureau. The Immigration Bureau is making efforts to establish ABTC special lanes in other airports as far as possible.

## 2 Operation of the Landing Permission for Crewmembers Support System

The Landing Permission for Crewmembers Support System, which commenced operations on July 23, 2003, is a system whereby applications for landing permission for crewmembers filed by carriers are received in an electronic form, and operations such as the crosschecking of foreign nationals against a list of suspect persons and preparation of landing permission for crewmembers are conducted systematically, in order to improve the effectiveness and convenience of the examination service.

The Convention on Facilitation of International Maritime Traffic (FAL Convention) 1965, which aims at smoother vessel operations by standardizing port departure and arrival procedures, was ratified in 2005. In this process, ministries in charge of ports and harbors services reexamined their systems in order to improve convenience, narrowing down the data input entries and unifying their application forms.

In the same year, the Plan to Optimize Immigration Control Services and Systems was formulated, which included promotion of computerization of procedures relating to applications for landing permission for crewmembers.

It was decided that the Common Portal for Ministries, which is a unified window to accept applications, should be developed in order to improve the user-friendliness of the systems that are currently operated separately by each ministry. This will commence operations in October 2008 with the Ministry of Finance (Nippon Automated Cargo Clearance System Operations Organization) playing a major role upon operation.
## Section 3 ♦ Smooth Acceptance of Foreign Workers Needed in Japanese Society

## 1 Expanding Acceptance of IT Engineers from Abroad

In recent years, IT-related technology has seen remarkable developments, and the need for IT engineers has also been increasing. In March 2001, the IT Strategy Headquarters drew up the "e-Japan Priority Policy Program". According to this program, the Immigration Bureau should identify problems in the present immigration control system, such as the landing permission criteria applicable to IT engineers, and also take necessary action to secure high-quality technical professionals and experts in Japanese society by further accepting IT engineers and other technical experts from foreign countries.

In this respect, the Ministry of Justice stated in the Basic Plan for Immigration Control (2nd edition) formulated on March 2000 that "smooth acceptance of foreign nationals in response to new domestic and international social needs" is one of the critical issues, and "as telecommunications development is largely contributing to development of other industries, the immigration control administration should also contribute to assertive securing and exchange of human resources in such fields". In accordance with this policy, with a view to responding to the need for more IT engineers, the Ministerial Ordinance on the Criteria for the Status of Residence of "Engineer" was partially amended in December 2001 to ease the standards for accepting IT engineers from abroad. Namely, foreign nationals who have passed foreign examinations or obtained qualifications on information processing skills, which are mutually certified by Japanese IT-related examinations or qualifications and are designated by the Minister of Justice in the Official Gazette, may enter Japan irrespective of whether or not they satisfy the criteria for landing permission regarding the status of "Engineer", i.e., having graduated from or completed a course at a college or acquired equivalent education, or having at least 10 years' work experience.

Foreign examinations and qualifications which are mutually certified in Japan and designated by the Ministry of Justice in the Official Gazette are examinations and qualifications implemented and granted in Singapore (as of December 28, 2001), R.O. Korea (as of July 19, 2002), China (as of July 19, 2002), the Philippines (as of May 30, 2003), and Viet Nam (as of May 30, 2003). On August 27, 2004, the Ministry of Justice revised the Minister's notice to additionally certify the examinations implemented in Myanmar and Taiwan.

The Three-Year Program for Promoting Regulatory Reform formulated in June 2007 also states that the government will review the system relating to the acceptance of foreign nationals, including the criteria for landing permission for IT engineers, and continue to take necessary measures. In the future, the countries covered by mutual certification of foreign examinations and qualifications will be expanded.