diff --git a/hwe/sammo/Event/Action/RaiseNPCNation.php b/hwe/sammo/Event/Action/RaiseNPCNation.php
new file mode 100644
index 00000000..76670291
--- /dev/null
+++ b/hwe/sammo/Event/Action/RaiseNPCNation.php
@@ -0,0 +1,276 @@
+<?php
+
+namespace sammo\Event\Action;
+
+use InvalidArgumentException;
+use sammo\ActionLogger;
+use sammo\CityConst;
+use sammo\DB;
+use sammo\GameConst;
+use sammo\Json;
+use sammo\KVStorage;
+use sammo\Scenario\GeneralBuilder;
+use sammo\Scenario\Nation;
+use sammo\UniqueConst;
+use sammo\Util;
+
+use function sammo\GetNationColors;
+use function sammo\getNationStaticInfo;
+use function sammo\pickGeneralFromPool;
+use function sammo\refreshNationStaticInfo;
+
+class RaiseNPCNation extends \sammo\Event\Action
+{
+    public function __construct()
+    {
+    }
+
+    const CITY_KEYS = ['pop', 'agri', 'comm', 'secu', 'def', 'wall'];
+    const MIN_DIST_USERNATION = 3;
+    const MIN_DIST_NPCNATION = 2;
+
+    private function calcAvgNationCity(array $cities)
+    {
+        if (count($cities) == 0) {
+            throw new InvalidArgumentException();
+        }
+
+        $targetCities = [];
+
+        foreach ($cities as $city) {
+            if ($city['nation'] == 0) {
+                continue;
+            }
+            $citySum = 0;
+            foreach (static::CITY_KEYS as $key) {
+                if ($key === 'pop') {
+                    continue;
+                }
+                $citySum += $city[$key];
+            }
+
+            $targetCities[] = [$city, $citySum];
+        }
+
+        $cityCnt = count($targetCities);
+
+        if ($cityCnt == 0) {
+            $target = Util::choiceRandom($cities);
+            $randCity = [];
+            foreach (static::CITY_KEYS as $key) {
+                $randCity[$key] = $target["{$key}_max"];
+            }
+            return $randCity;
+        }
+
+        usort($targetCities, function (array $lhs, array $rhs) {
+            return $lhs[1] <=> $rhs[1];
+        });
+
+
+        //최소, 최대 도시 몇개를 뺀다. 정렬은 신경쓰지 않는다.
+
+        if ($cityCnt >= 3) {
+            $reduceCnt = Util::valueFit(Util::round($cityCnt / 6, 0), 1);
+            foreach (Util::range($reduceCnt) as $_idx) {
+                array_pop($targetCities);
+            }
+
+            foreach (Util::range($reduceCnt) as $idx) {
+                $targetCities[$idx] = array_pop($targetCities);
+            }
+
+            $cityCnt -= $reduceCnt * 2;
+        }
+
+        $avgCity = [];
+        foreach ($targetCities as $city) {
+            foreach (static::CITY_KEYS as $key) {
+                $avgCity[$key] = ($avgCity[$key] ?? 0) + $city[$key];
+            }
+        }
+
+        foreach (static::CITY_KEYS as $key) {
+            $avgCity[$key] = Util::toInt($avgCity[$key] / $cityCnt);
+        }
+        return $avgCity;
+    }
+
+    public function calcAvgNationGeneralCnt(): int
+    {
+        $nationUsers = [];
+        foreach (\sammo\getAllNationStaticInfo() as $nation) {
+            if ($nation['level'] == 0) {
+                continue;
+            }
+            $nationUsers[] = $nation['gennum'];
+        }
+
+        $nationCnt = count($nationUsers);
+        if ($nationCnt == 0) {
+            return GameConst::$initialNationGenLimit;
+        }
+
+        sort($nationUsers);
+        if ($nationCnt >= 3) {
+            $reduceCnt = Util::valueFit(Util::round($nationCnt / 6, 0), 1);
+            foreach (Util::range($reduceCnt) as $_idx) {
+                array_pop($nationUsers);
+            }
+
+            foreach (Util::range($reduceCnt) as $idx) {
+                $nationUsers[$idx] = array_pop($nationUsers);
+            }
+            $nationCnt -= $reduceCnt * 2;
+        }
+
+        return Util::round(array_sum($nationUsers) / $nationCnt);
+    }
+
+    public function calcAvgTech(): int
+    {
+        $techSum = 0;
+        $nationCnt = 0;
+        foreach (\sammo\getAllNationStaticInfo() as $nation) {
+            if ($nation['level'] == 0) {
+                continue;
+            }
+            $techSum += $nation['tech'];
+            $nationCnt += 1;
+        }
+        if($nationCnt == 0){
+            return 0;
+        }
+        return Util::toInt($techSum / $nationCnt);
+    }
+
+    private function buildNation(int $nationID, int $tech, array $baseCity, array $avgCity, int $genCnt, $env)
+    {
+        $db = DB::db();
+
+        $targetCity = [
+            'trust' => 100
+        ];
+        foreach (static::CITY_KEYS as $key) {
+            $targetCity[$key] = min($targetCity["{$key}_max"], $avgCity[$key]);
+        }
+
+        $pickTypeList = ['무' => 1, '지' => 1];
+
+        $cityID = $baseCity['id'];
+        $cityName = $baseCity['name'];
+        $nationName = "ⓤ{$cityName}";
+
+        $color = Util::choiceRandom(GetNationColors());
+        $nationObj = new Nation($nationID, $nationName, $color, 0, 2000, "우리도 할 수 있다! {$cityName}군", $tech, null, 2, [$cityName]);
+        $nationObj->build($env);
+
+        $affinity = Util::randRangeInt(1, 150);
+        $ruler = (new GeneralBuilder("{$cityName}태수", false, null, $nationID))
+            ->setOfficerLevel(12)
+            ->setCityID($cityID)
+            ->setNPCType(6)
+            ->setGoldRice(1000, 1000)
+            ->setAffinity($affinity)
+            ->fillRandomStat($pickTypeList)
+            ->fillRemainSpecAsZero($env);
+        $ruler->build($env);
+
+        $nationObj->addGeneral($ruler);
+
+        foreach (pickGeneralFromPool(DB::db(), 0, $genCnt - 1) as $pickedNPC) {
+            $newNPC = $pickedNPC->getGeneralBuilder();
+            $newNPC->setNationID($nationID)
+                ->setCityID($cityID)
+                ->setNPCType(6)
+                ->setGoldRice(1000, 1000)
+                ->setAffinity($affinity)
+                ->fillRandomStat($pickTypeList)
+                ->fillRemainSpecAsZero($env);
+            $newNPC->build($env);
+            $pickedNPC->occupyGeneralName();
+
+            $nationObj->addGeneral($newNPC);
+        }
+
+        $nationObj->postBuild($env);
+        $db->update('city', $targetCity, 'city = %i', $cityID);
+        refreshNationStaticInfo();
+    }
+
+    public function run(array $env)
+    {
+        $db = DB::db();
+
+        $allCities = $db->query('SELECT * FROM city WHERE 5 <= level AND level <= 6'); //소, 중 성만 선택
+
+        $emptyCities = [];
+        $occupiedCities = [];
+        $npcCities = [];
+
+        $avgCity = $this->calcAvgNationCity($allCities);
+
+        foreach ($allCities as $city) {
+            if ($city['nation'] == 0) {
+                $emptyCities[$city['city']] = $city;
+            } else {
+                $occupiedCities[$city['city']] = $city;
+            }
+        }
+
+        $avgGenCnt = $this->calcAvgNationGeneralCnt();
+
+        $serverID = UniqueConst::$serverID;
+        $existNations = $db->queryFirstColumn("SELECT nation FROM `nation`");
+        $lastNationID = max(
+            max($existNations),
+            $db->queryFirstField("SELECT max(`nation`) FROM `ng_old_nations` WHERE server_id = %s", $serverID),
+        );
+
+        $avgTech = $this->calcAvgTech();
+        Util::shuffle_assoc($emptyCities);
+
+        $occupiedCitiesID = array_keys($occupiedCities);
+        $npcCitiesID = [];
+
+        foreach ($emptyCities as $emptyCity) {
+            $cityID = $emptyCity['city'];
+
+            $minDistance = 999;
+            foreach($occupiedCitiesID as $targetCityID){
+                $minDistance = min(\sammo\calcCityDistance($cityID, $targetCityID, null), $minDistance);
+                if($minDistance < static::MIN_DIST_USERNATION){
+                    break;
+                }
+            }
+            if($minDistance < static::MIN_DIST_USERNATION){
+                continue;
+            }
+
+            $minDistance = 999;
+            foreach($npcCitiesID as $targetCityID){
+                $minDistance = min(\sammo\calcCityDistance($cityID, $targetCityID, null), $minDistance);
+                if($minDistance < static::MIN_DIST_NPCNATION){
+                    break;
+                }
+            }
+            if($minDistance < static::MIN_DIST_NPCNATION){
+                continue;
+            }
+
+            //TODO: 거리 측정
+            $lastNationID += 1;
+            $this->buildNation($lastNationID, $avgTech, $emptyCity, $avgCity, $avgGenCnt, $env);
+            $npcCities[$cityID] = $emptyCity;
+            $npcCitiesID[] = $cityID;
+        }
+
+        if(count($npcCities) > 0){
+            $logger = new ActionLogger(0, 0, $env['year'], $env['month']);
+            $logger->pushGlobalHistoryLog("<L><b>【공지】</b></>공백지에 임의의 국가가 생성되었습니다.");
+            $logger->flush();
+        }
+
+        return [__CLASS__, count($npcCities)];
+    }
+}