1. Air Cargo Security in Japan
Soshi MURAKAWA
Special Assistant to the Director
Aviation Security Office
Aviation Safety and Security Promotion Division
Civil Aviation Bureau
Ministry of Land, Infrastructure, Transport and Tourism
Thank you, Chair.
Good morning, ladies and gentlemen. I am Soshi Murakawa, Special Assistant to the Director, Aviation security office, Civil Aviation Bureau, Japan.
It is my great pleasure to take this opportunity to introduce you about Japan’s Air cargo security measures on this workshop.
Restricted

2. Contents Overview of Aviation Security System in Japan
Air Cargo Security in Japan
Regulated Agent Regime
Screening
Quality Control
My presentation is divided into 2 parts.
The first part is “overview of aviation security system in Japan”.
The second is “Air cargo security in Japan”
The second part is the main topic of this workshop. I am focusing on 3 topics, Regulated agent, Screening of air cargo, and quality control of air cargo security.
This presentation will last 15min.
Restricted

3. I. Introduction - Civil Aviation Activities in Japan-
International Passengers flow to and from Japan
(Unit: Thousand)
I would like to introduce Civil aviation activity in Japan.
This slide shows air traffic flow of total number of international passengers to and from Japan. The flow between Asia Pacific area and Japan is about 33 million per year.
Considering the magnitude of air traffic, Japan is directly responsible for the safety of approximately 5% of the world’s traffic volume.
Restricted

4. I. Introduction - Civil Aviation Activities in Japan-
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000 US UK
China
Germany
Japan
France
Australia
Canada
Singapore
Korea
Russia
Italy
India
2005
2006
Air Cargo Handling Volume
In million
ton-kilometers
This slide show Air cargo handling volume, Ton-kilometers on scheduled services by major countries.
Japan handled 21 billion ton-kilometers for This was the fifth amount in the world.
Japan: 21,706 million ton-kilometers for 2006
The fifth amount in the world
ICAO: Annual Report of the
Council, 2006
Restricted

5. I. Introduction - Aviation Security System in Japan -
< Major Responsibilities >
JCAB
Policy, law and regulation making
Coordination among relevant agencies
Inspection
Airport Operators
Access control
Airport contingency plan
Airport Security Committee
Air Carriers
Screening of passengers and their baggage
Security Measures for air cargo
Security measures for aircraft
Regulated Agent
Police
Patrol of Airport Terminal and Surrounding Areas
Response to Matters such as Bomb Threat or Hijacking
Next, I would like to briefly introduce Aviation Security Authority and other key stakeholders regarding aviation security.
JCAB has a full responsibility to maintain and enhance aviation security in accordance with ICAO ANNEX 17.
JCAB has established all necessary regulations which require aviation security measures. And JCAB has a responsibility to inspect the security measures taken by air carriers, airport operators, and regulated agents.
In Japan, air carriers provide security measures for screening passengers and their baggage, and security measures for air cargo onto aircrafts.
Airport operators need to take some parts of security measures, for example, access control. Airport security committee must be established and controlled by airport operator.
Japan has introduced Regulated agents, so that they play one of the important roles for security measures.
Restricted

6. Government (CAB) I. Introduction - Aviation Security System in Japan -
Security measures for passenger and baggage
Governmental agencies (police, CIQ, etc.)
Carriers
Air
Screening of passengers, carry-on baggage and hold baggage
 Security controls of catering supplies and stores to be brought onto airplanes, etc.
Security measures for aircraft
 aircraft security check, etc.
Instruction &
Education
Education of screeners
 Education, training and certifications of screeners
Regulated
Agents
Security measures for air cargo
Airport operators and airport terminal companies
This slide shows the relationship among JCAB, air carriers, airport operators and other relevant organizations and agencies, such as police, CIQ.
Air carriers and regulated agents are implementing security measures for air cargo. And CAB provide instruction and education with them.
This is one of examples for sharing responsibility to aviation security. The most important thing is to ensure sufficient implementation of secure preventive measures against unlawful interference according to respective responsibility.
Instruction &
Education
Security control of air cargo handling facilities
Security control of air cargo, etc.
Security control of airports
Setting of security restricted areas in airports and ensuring access control
Staff screening, etc.
Restricted

7. Source: The Asahi Press
I. Introduction - Past Incident of Aircraft Explosion Plot Related to Japan -
Bomb explosion at Narita Airport
In June 1985, a container of transfer hold baggage exploded at Narita Airport, killing two ground workers. It was revealed that this container came from Vancouver and was to be taken on board aircraft operated by Air India.
Concurrent aircraft explosion over the North Atlantic
One hour after the incident in Japan, another aircraft operated by Air India from Montreal to London (AI 182) exploded in the air while flying over the North Atlantic, claiming 329 lives.
Let me introduce a past incident in Japan.
In July 1985, a container of transfer hold baggage exploded at Narita airport and 2 ground workers were killed.
In this incident, bomb was in the hold baggage.
the hold baggage was unaccompanied one, the person who checked hold baggage did not get on board aircrafts.
Although this case is not directly related to air cargo, this tragedy reminds us the importance of air cargo security.
Source: The Asahi Press
Restricted

8. II. Air Cargo Security in Japan 1. Regulated Agent Regime
Basis of the Regulated Agent (RA) Regime
ICAO Annex 17 and Security Manual
Main purpose
To facilitate smooth flow of air cargo while maintaining the security of air cargo.
Enforcement
October 1, (transition period up to March 31, 2006)
April 1, (full implementation)
Number of Regulated Agents
(Approved freight forwarders and air transport agents)
158 Companies as of 1 March 2008
Let me move on the next part, this workshop’s topic, Air cargo security.
At first, although this plenary topic is Screening, I would like to refer to Regulated Agent regime, because the main pillar of air cargo security in Japan is “Regulated Agent.”
Japan has introduced RA since April and JCAB has approved about 160 agents – including both freight forwarders and air transport agents.
We developed our regulated agent regime, based on Annex 17 and Security manual. And we introduced RA provisions into National Civil Aviation Security Program and issued relevant regulations.
Restricted

9. II. Air Cargo Security in Japan 1. Regulated Agent Regime
Basic concepts of RA regime in Japan
- Compatibility between security of air cargo and
facilitation of air cargo flow
- Appropriate sorting out of secure air cargoes from other air
cargoes
As for secure air cargo (air cargo which has been identified
as secure), smooth loading into aircraft is allowed.
As for other air cargo (air cargo which has not yet been
identified as secure), screening of those air cargoes is
required to be carried out by regulated agents or air carriers
before loading into aircraft.
The purpose of RA regime is, to ensure both security of air cargo and facilitation of air cargo flow. Actually, thanks to RA regime, we succeeded in mitigating the impact of air cargo screening on the facilitation of trade. One of the most important elements is how secure air cargo is sorted out from other cargoes.
Then, in our regime, air cargo, which has been identified as secure, will be allowed to be loaded onto aircraft.
On the other hand, air cargo, which has not yet been identified as secure, is required to be screened by regulated agents or air carriers before loading.
Restricted

10. MLIT II. Air Cargo Security in Japan 1. Regulated Agent Regime
Outline
Known Shipper
Guidance and request for cooperation
Safety declaration
ensuring cargo safety
Approval and instruction
Consistent protection from known shipper to loading into aircraft
Regulated Agent
MLIT
Application
Air Cargo Security Programme
Safety confirmation
Unknown Cargo
This chart shows the outline of relationship among main actors in our known shipper/regulated agent regime.
As for Regulated Agent, based on an application with Air Cargo Security Program, MLIT approves a freight forwarder or air transport agent as a regulated agent if it is considered to be able to take appropriate security measures for air cargo.
As for Known Shipper, a shipper with the intention to become a known shipper, must submit “Safety Declaration Note” to RA. It is the document that the shipper ensure that appropriate security measures have been taken in each process of parking, storing and transport to prevent unauthorized tampering of the air cargo, etc. On the contrary, RA must confirm the reliability and the safety of the shipper as a known shipper.
Under the known shipper/regulated agent regime in Japan, in principle, air cargo must undergo screening for explosives if it is taken on board passenger aircraft. However, if the air cargo is handled by an RA appropriately, and then consistently protected up to loading onto aircraft, the air cargo is exempted from screening for explosives.
Instruction of security measure
Air Carrier
Screening for
explosive
(ETDS, etc.)
Safety confirmation of air cargo before loading into aircraft

11. II. Air Cargo Security in Japan 1. Regulated Agent Regime
RA approval standards (Guidelines by the Civil Aviation Bureau)
Compliance with the NCASP and security standards for air cargo in their air cargo security programmes
Competence to execute the air cargo security program properly
Air Cargo Security Programmes
Category of the threat level
Security measures for air cargo according to the threat level, including security control for air cargo handling facilities
Methods of confirming know shippers
Specific procedures for safety confirmation
Education and training in aviation security
Regular self-inspection concerning its security measures
Other items required
This slide shows the approval procedure of RA by CAB.
CAB examined the following two points as criteria for approval of RA.
Compliance with the NCASP and security standards for air cargo in their air cargo security program.
Competence to execute the air cargo security program properly.
The air cargo security program developed by RA is key element of approval procedure.
CAB developed the guideline which provides the standard contents of air cargo security program.
Program covers
Category of the threat level
Security measures for air cargo according to threat level, including security control of facility
Methods of confirming known shippers
Specific procedures for safety confirmation
Education and training in aviation security
Regular self-inspection
Restricted

12. II. Air Cargo Security in Japan 1. Regulated Agent Regime
Effective scope of safety declaration
to be screened for explosives
Safety declaration note and
written consent
AWB: Shipper=Company A
Known cargo
Company A:
Known shipper
Company X:
RA or Air carrier
Known cargo
By submitting the safety declaration note for secure air cargo, all cargoes shipped by A (on the AWB) and handled by X are treated as known cargoes.
Safety confirmation
Order
AWB: Shipper
=Company A
As for shipper, if shipper want to become known shipper, it must submit a safety declaration to RA or air carrier.
Shipper must ensure that appropriate security measures have been taken in each process of packing, storing, and transport to prevent unauthorized tampering of the air cargo. After the process of proper confirmation by the RA, this shipper will be treated as a known shipper.
In the case of the cargo shipped by the known shipper’s subsidiary or associated company, if the cargo is based on the order from known shipper and the name of Air Way Bill is known shipper, that cargo is treated as known cargo.
Subsidiary vendor
Associated
companies
Subsidiary
(Vendor)
Other
companies
Restricted

13. Regulated Agents (freight forwarders and air transportation agents)
II. Air Cargo Security in Japan 1. Regulated Agent Regime
Flow of Air Cargo
Known Shipper
Shippers identified by Air Carriers or RAs KS
Unknown Shipper
Shippers other than known shippers １ ２ ４ ３ ５ ６ RA
　　Regulated Agents (freight forwarders and air transportation agents)
Forwarders other than RA
・Safety confirmation by the package
・Process control complying
with the standards
・Refusal of acceptance
・Opening search
・Screening with an X-ray machine, etc. or
・24 hour-detention* ３ ５ ２ ４
Air Carriers
Let’s see the flow of air cargo in RA regime.
Air cargo must undergo screening for explosives before loading onto passenger aircraft by RA or Air carrier, except for the case of NO.1 and No.2.
In these cases, the safety of cargo is ensured by security measures such as confirmation of documents, external packing, and security control of cargo handling facilities.
In other cases, cargo must be screened for explosives by RA or air carrier. ３ ５ ６ １ ２ ４
・Safety confirmation by the package
・Process control complying with the standards
・Refusal of acceptance ・ Opening search
・Screening with an X-ray machine, etc., or
・24 hour detention*
* 24-hour detention is allowed only when the air cargo is to be loaded onto aircraft dedicated for air cargo transport.
On board aircraft
Restricted

14. <Screening for Explosives>
II. Air Cargo Security in Japan 2. Screening
Principle of security measures taken by an RA
Screening for explosive of air cargo to be taken on board passenger aircraft is required, unless air cargo is handled by an RA and recognized as known cargo shipped from a known shipper.
⇒The RA shall confirm that the air cargo is shipped from known shippers, and then take preventive measures against unauthorized tampering of the air cargo.
Let me move on to the next topic, screening. This is the main theme of this plenary.
Air cargo must undergo screening for explosives if it is taken on board passenger aircraft. However, if the cargo is handled by RA appropriately, the cargo is exempted from screening for explosives.
As for the method of screening for explosives, we adopt mainly 2 methods of screening: 1. Screening by equipments – EDS, AT, ETDS, X-ray. 2. opening search.
But if the cargo is be loaded onto aircraft for cargo transport, 24-hour detention is also allowed.
Opening search or screening by screening equipment
(X-ray, AT, ETDS or EDS) *
<Screening for Explosives>
* 24-hour detention is allowed only when the air cargo is to be loaded onto aircraft dedicated for air cargo transport.
Restricted

15. II. Air Cargo Security in Japan 2. Screening -Screening Equipment-
Type of Screening equipment
ETDS – Mainly used
X-Ray
Others
Issues
Cost of introduction
Cost of maintenance
Personnel – Training
What type of screening equipments is used in Japan?
RA and Air carrier normally use ETDS – Explosive trace detection devise system.
ETDS is the picture in the upper. This is produced by Hitachi, Japanese maker and this ETDS got the certification from Transport Security Agency of United States.
X-ray is used mainly for mails, which is not allowed to screen by open search.
As far as I know, in Japan, these 2 equipments are used for the air cargo screening.
As for the screening equipment, I think there are 2 issues.
One is the cost of equipments – there are 2 types of cost: purchase of equipment and maintenance of equipment.
Another is personnel training. In order to use it appropriately, RA and air carrier must give proper training for their personnel before implementing screening. And, only personnel who got training of specific equipments like ETDS is allowed to use such equipments.
Restricted

16. II. Air Cargo Security in Japan 2. Screening - Financial support -
Target airport: airports managed by the national government (25 airports)
Target party: Air carriers, RAs, and cargo terminal building companies
Target items:
Cost of purchase of explosive detection machines
(X-ray detection equipment, explosive trace detection systems, etc.)
Cost of security screeners for detecting explosives
Cost of security guards at the cargo terminal building in the airport
Let me talk about the cost issue, Japan has government financial support system.
Basically, financial support is given by the government up to half of the total cost for designated purposes.
First, target airports are those managed by the national government (25 airports). In this regard, in the case of other kinds of airports managed by the semi-governmental airport corporations (Narita, Kansai, and Chubu) or local governments, they also provide financial support in principle in a similar way of the national government.
Then, target parties include air carriers, RAs, and cargo terminal building companies.
Finally, target items consist of the following three items:
Cost of purchase of screening equipments
Cost of security screeners for detecting explosives
Cost of security guards at the cargo terminal building in airports.
The source of this financial support is from “security charge.” Security charge is collected from parts of landing fee. (100yen per passenger, 300 per ton of cargo)
* Proportion of the support: within a half of the total cost
*　In the case of other kinds of airports managed by the semi-governmental airport corporations (Narita, Kansai, and Chubu) or local governments, they also provide financial support in principle in a similar way to the national government.
Restricted

17. II. Air Cargo Security in Japan 3. Quality Control
Requirements of submitting reports and receiving CAB’s inspection
Instruction for improvement of air cargo security programme, or cancellation of the approval by the CAB
Training for security officer
National Civil Aviation Training program
Annual training program provided by CAB
Next topic is quality control.
After approval of RA, we takes the following actions in order to ensure implementation of the air cargo security program and further improve the content of the program.
Requirements of submitting reports
Receiving CAB’s inspection
After inspection, CAB may instruct the improvement of air cargo security program or cancellation of the approval by CAB
(RA also have its self-inspection. The implementation of self-inspection is one of elements in air cargo security program.)
Another method of quality control is training. Human resource is one of the most important elements for implementing appropriate security measures.
In Japan, we have National Civil Aviation Security Training Program. This program require RAs to have security training plan and to provide appropriate training with personnel.
And JCAB provides annual training to RAs according to national civil aviation security training program. This training is for the oversight personnel of security section in RAs. June 23 was the day of training. The contents of program were relevant legislation and regulations, crisis management, screening, access control and so on.
Restricted

18. II. Air Cargo Security in Japan 3. Quality Control - Inspection -
Inspection of RAs conducted by Civil Aviation Bureau
Main Items of inspection
Concrete contents of inspection
1. Security measures for air cargo
1. Do security measures currently implemented conform to those prescribed by the Civil Aviation Bureau for each threat level? Is access control of air cargo handling facilities, such as locking of doors of the facilities, appropriately conducted? Are security measures for air cargo, such as screening for explosives, appropriately taken? etc.
2. Confirmation of known shippers
3. Specific methods of safety confirmation
2. Are known shippers appropriately confirmed by an RA? etc.
3. Are cargoes from known shippers and unknown shippers appropriately separated? Is safety confirmation certainly conducted corresponding to each category? etc.
4. Education and training in aviation security
5. State of implementation of self-inspection
6. Others
4. Are education and training properly performed according to the programme developed by each Regulated forwarder? etc.
5. Is internal inspection conducted at least once a year? etc.
6. Is emergency contact network appropriately prepared, informed of, and displayed? Are documents to be saved appropriately saved? etc.
This slide shows main items to be checked in the inspections of RAs conducted by CAB.
First, main items to be checked in our inspection of RAs include the following items:
Security measures for air cargo
Confirmation of known shippers
Specific methods of safety confirmation
Education and training in aviation security
State of implementation of self-inspection
Others
For each item, we examine appropriateness of relevant measures taken by the RA in light of its air cargo security program and our standards and guideline.
Next, as standard process of our inspection of RAs, CAB sends comprehensive inquiry form to the designated RA prior to the inspection.
then after the inspection, inspector compile a report, and carry out a follow-up on the indicated point in the report.
・Advance hearing on the basis of answers to inquiry form
Recording by inspection report writing
Follow-up on the indicated points
Advance
preparation
Subsequent
work
Restricted

19. II. Air Cargo Security in Japan 3. Quality Control - Inspection -
Inspection of Airport (Cargo security) conducted by CAB
Main Items of inspection
Concrete contents of inspection
1. The procedure of receiving cargo
1. Are IDs of drivers checked when receiving cargo? How do they distinguish between known cargo and unknown cargo? Are relevant documents such as confirmation note are kept appropriately? Is known cargo physically separated from unknown one? Do they take any measure to prevent the counterfeit of known cargo? etc.
2.Screening
3.Access control
2. Do they appropriately use and maintain ETDS or X-ray machine? Describe the training system and record. etc.
3. Confirm the condition of a perimeter fence around the cargo area. How do they operate gates at cargo area and the shutter of the cargo facilities? How do they control the lock of the doors to restricted area? How do they issue and control permits (personnel, vehicle)? How do they deploy guards at cargo area? etc.
The inspection in Airport is also related to the cargo security quality control. This is the relevant items of air cargo security in airport inspection.
Advance
preparation
・Advance hearing on the basis of answers to inquiry form
Subsequent
work
Recording by inspection report writing
Follow-up on the indicated points
Restricted

20. International Air Transport Network is expanding globally and International cooperation on Aviation Security is vital for further development of aviation. Thank you for your attention.
Conclusion.
Security is the most important thing for us. However, in the case of air cargo, it is not practical to screen all air cargo and there is a low risk to the perpetrator as referred in security manual. And, we have to fulfill not only security but also facilitation of cargo.
Therefore, one of the important issues in this area is how to recognize or approve a cargo as secure one. And, off course, we have to introduce appropriate screening measures. ETDS is main equipment in Japan. While RA and air carrier are implementing screening, government and airport operators give financial support to them for equipments and personnel.
As for air cargo security, I think it is important to involve all stakeholders – freight forwarder, air carrier, shipper, government, airport. All of them should take some responsibility of air cargo security and play its role appropriately.
In conclusion, international air transport network is expanding globally and international efforts on aviation security is vital for further development of aviation.
Strong commitment to aviation security will help worldwide aviation activities.
Thank you for your attention.