The Fukushima Nuclear Accident and Crisis Management
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e Fukushima Nuclearand Crisis Accident Management e Fukushima The Fukushima Nuclear Accident and Crisis Management — Lessons for Japan-U.S. Alliance Cooperation — — Lessons for Japan-U.S. Alliance Cooperation — — Lessons for Japan-U.S. September, 2012 e Sasakawa Peace Foundation Foreword This report is the culmination of a research project titled ”Assessment: Japan-US Response to the Fukushima Crisis,” which the Sasakawa Peace Foundation launched in July 2011. The accident at the Fukushima Daiichi Nuclear Power Plant that resulted from the Great East Japan Earthquake of March 11, 2011, involved the dispersion and spread of radioactive materials, and thus from both the political and economic perspectives, the accident became not only an issue for Japan itself but also an issue requiring international crisis management. Because nuclear plants can become the target of nuclear terrorism, problems related to such facilities are directly connected to security issues. However, the policymaking of the Japanese government and Japan-US coordination in response to the Fukushima crisis was not implemented smoothly. This research project was premised upon the belief that it is extremely important for the future of the Japan-US relationship to draw lessons from the recent crisis and use that to deepen bilateral cooperation. The objective of this project was thus to review and analyze the lessons that can be drawn from US and Japanese responses to the accident at the Fukushima Daiichi Nuclear Power Plant, and on the basis of these assessments, to contribute to enhancing the Japan-US alliance’s nuclear crisis management capabilities, including its ability to respond to nuclear terrorism. At the same time, the project sought to offer proposals that would contribute to enhancing the capacity of the crisis management system in the Asia Pacific region in the future. At the core of the project was a study group comprised of the five security and nuclear power experts listed below. The group met more than 10 times, and through those meetings as well as through trips to the United States and numerous interviews with relevant actors in the United States and Japan, they reviewed, assessed, and analyzed each country’s prior assumptions, preparations, and responses, as well as their policymaking mechanisms. In carrying out this project, the research team received the unsparing cooperation and advice of many practitioners and researchers in both Japan and the United States. This was based on the shared sincere hope that the lessons of the Great East Japan Earthquake, which took so many lives, and of the subsequent accident at the Fukushima Daiichi Nuclear Power Plant, would not be wasted. We would like to take this opportunity to express our deep gratitude for their kindness and cooperation. At the same time, we would like to offer our heartfelt condolences to all those who lost loved ones, and to those victims who are continuing to face significant hardships as a result of the Great East Japan Earthquake. The Sasakawa Peace Foundation Project Members Nobumasa AKIYAMA, Acting Project Team Chair; Professor, Graduate School of Law, Hitotsubashi University (Introduction, Chapter 6, and Afterword) Heigo SATO, Professor, Institute of World Studies, Takushoku University (Introduction, Chapter3, and Afterword) Kaoru NAITO, President, Nuclear Material Control Center (Chapter 4) Yosuke NAOI, Deputy Director, Integrated Support Center for Nuclear Nonproliferation and Nuclear Security, Japan Atomic Energy Agency (Chapter 5) Tadahiro KATSUTA, Associate Professor, School of Law, Meiji University (Chapter 1 and 2) Project Team Assistant Note: This project was a self-initiated research project conducted by the Sasakawa Peace Foundation’s JapanHarumi-US Exchange ARAI, PhD Program Candidate,. The contents Takushoku of this University report, however, are the opinion of the study group members and do not reflect the opinions of the Sasakawa Peace Foundation, nor do they reflect the opinions of the experts who kindly participated in interviews or meetings during the course of the project. Table of Contents Foreword .............................................................................................................................. 1 Introduction .......................................................................................................................... 5 Chapter 1: The Accident at the Fukushima Daiichi Nuclear Power Plant ...............................................9 1.1 An overview of the accident at the Fukushima Daiichi Nuclear Power Plant .............................9 (1) Earthquake and tsunami ..................................................................................................................9 (2) Timeline of the accident ................................................................................................................ 11 (3) The spent fuel pool and other conditions at the plant, and the exposure of workers to radiation ............................................................................................................................................................ 15 1.2 The government response and evacuation of residents: offsite conditions ............................ 18 (1) Government response ................................................................................................................... 18 (2) Evacuation of residents/evacuation zone ..................................................................................... 21 1.3 The inadequacies of the response to the accident................................................................. 24 (1) Were accident prevention measures sufficient? .......................................................................... 24 (2) Were accident mitigation efforts sufficient? ................................................................................ 26 Chapter 2: The Societal Impact of the Nuclear Accident ....................................................... 29 2.1 Response to the contamination problem .............................................................................. 29 (1) Contamination of food and water ................................................................................................. 29 (2) Government policy on human radiation exposure ....................................................................... 30 (3) Decontamination efforts ............................................................................................................... 31 (4) Impact on industry and others ...................................................................................................... 32 2.2 Impact on nuclear energy policy ......................................................................................... 33 (1) Impact on power supply stability .................................................................................................. 33 (2) Distrust of past nuclear energy administration and changes in nuclear energy policy ................ 34 (3) Impact on nuclear energy policy abroad ....................................................................................... 36 2.3 Societal impact and issues in the wake of the disaster ........................................................ 38 (1) Social impact of the radioactivity .................................................................................................. 38 (2) Social impact caused by the lack of clear information .................................................................. 40 (3) Compensation issue ...................................................................................................................... 42 Chapter 3: Japan-US Cooperation and Crisis Management after the Fukushima Daiichi Nuclear Power Plant Accident ................................................................. 46 3.1 The Fukushima nuclear accident and Japan-US cooperation ................................................ 46 3.2 A chronology of Japan-US cooperation and crisis management ........................................... 49 3.3 Military-to-military cooperation ......................................................................................... 52 3.4 Differences in American and Japanese approaches to crisis management and the role of the Bilateral Joint Operations Coordination Center ....................................................................... 53 3.5 Overall evaluation of Japan-US cooperation ....................................................................... 56 (1) Information ................................................................................................................................... 57 (2) Channels of Dialogue ..................................................................................................................... 58 (3) Issues on the US side ..................................................................................................................... 59 (4) The transition from normalcy to emergency conditions ............................................................... 60 3.6 Japan-US defense cooperation and nuclear safety .............................................................. 61 Chapter 4: Vulnerabilities in Nuclear Security ...................................................................... 63 4.1 The international background of expanding and strengthening nuclear security policy ........ 63 4.2 International and domestic responses to strengthening