Japan Races to Secure Civilian Shelters, Coverage at Just 5.5%

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The Japanese government is stepping up efforts to secure missile shelters in preparation for potential crises, including a Taiwan contingency. As seen in recent conflicts in Ukraine and the Middle East, shelters play a crucial role in protecting civilians from missile attacks.

While the government aims to expand the use of private facilities, many operators remain reluctant to participate. Whether their concerns can be addressed will ultimately determine the success of the effort.

At the Starting Line

South Korea offers a leading example of what a robust shelter program looks like. Facing the persistent threat from North Korea, it has converted underground parking garages in apartment complexes and subway stations into shelters, with capacity to accommodate more than three times its entire population.

By contrast, Japan's shelter coverage stands at just 5.5% of the population and is limited to underground facilities.

"Compared to other countries with more advanced programs, we still have a long way to go — but we have finally reached the starting line," one government official said.

In 2024, the Japanese government began designating "temporary evacuation facilities" in five municipalities in the Sakishima Islands, including Ishigaki and Miyako, where residents could shelter for up to two weeks. The islands are located at the southernmost end of the Japanese archipelago.

*Shelter preparedness in selected countries.(Based on a FY2024 government survey conducted)*

Bringing Businesses on Board

Under Japan's newly approved basic policy on shelter development, the government has set a broader goal of securing "emergency temporary evacuation facilities" nationwide for short-term use.

"To achieve these new goals, cooperation and participation from private businesses are essential," said Chief Cabinet Secretary Minoru Kihara. To encourage participation, the policy calls for incentives such as a new award system and relaxed floor-area ratio regulations for large buildings.

However, some businesses are wary that official designation as an evacuation site could expose them to liability in an emergency — whether from a sudden influx of evacuees or injuries on their premises.

The government is also exploring how shelters could serve a dual purpose, functioning as refuges during natural disasters. A senior Cabinet Office official in charge of disaster management said that "making effective use of existing underground spaces is essential for efficient shelter development."

Significant hurdles remain. Underground facilities are heavily concentrated in urban areas, construction costs are high, and the policy still lacks concrete targets. There are no clear estimates yet for how many facilities will be needed or how much funding will be required. The government hopes to flesh out the details as it revises its three key national security documents, including the National Security Strategy, later in 2026.