Bridging the gap between national policy and local implementation: analysis of sheltering-in-place policy development and stakeholder concerns in Japan

Preparedness for nuclear and radiological emergencies increasingly requires consideration of complex scenarios, including compound disasters, disruptions to critical infrastructure, and challenges in public communication. In Japan, following the Fukushima Daiichi Nuclear Power Station accident, sheltering-in-place has been positioned as a key protective action for residents within the Urgent Protective Action Planning Zone. However, recent experiences, including the 2024 Noto Peninsula Earthquake, have highlighted operational challenges and renewed concerns regarding the practical implementation of sheltering-in-place. This study examined the policy development process for sheltering-in-place in Japan by analyzing discussions of the Nuclear Regulation Authority's "Study Team on the Operational Use of Sheltering-in-Place" held between April 2024 and March 2025. A qualitative document analysis was conducted using publicly available meeting records, the final report, and comments submitted by local governments and members of the public during consultation and public comment procedures. The study found that the study team clarified key operational elements of sheltering-in-place, including initiation, geographic scope, continuation, termination, transition to evacuation or temporary relocation, temporary outings, and information provision. However, comments from local governments and the public revealed persistent concerns regarding legal and institutional consistency, compound-disaster response, public communication, information dissemination systems, continuity of social and business activities, support for healthcare and welfare facilities, maintenance of lifelines and essential supplies, and coordination among governmental and related organizations. These findings suggest that the successful implementation of sheltering-in-place depends not only on technical criteria such as dose assessment and protective action thresholds, but also on effective risk communication among governments, healthcare and welfare institutions, businesses, and residents. The principal challenge is translating national policy into locally understandable and actionable practices. Strengthening stakeholder engagement, public communication, and community-based preparedness during non-emergency periods may therefore be essential for enhancing the effectiveness and social acceptability of shelteringin-place as a protective action in future nuclear emergencies.