Professional Documents
Culture Documents
Energy Policy
journal homepage: www.elsevier.com/locate/enpol
Short Communication
School of Archaeology and Anthropology, The Australian National University, Canberra, Australia
South-east Asian Biodiversity Society, Singapore, Singapore
Department of Political Science, National University of Singapore, Singapore, Singapore
d
Fenner School of Environment and Society, The Australian National University, Canberra, Australia
e
Department of Biological Science, National University of Singapore, Singapore, Singapore
b
c
H I G H L I G H T S
As Europeans urgently phase-out nuclear power, Japan voted out such a government despite high anti-nuclear sentiment.
Regulatory climate within the nuclear industry was dysfunctional as a result of being captured by the nuclear village.
New independent nuclear authority is made up of previously captured agency.
With a pro-nuclear government, and lack of really independent nuclear authority, old problems may yet arise.
Japanese government has to choose between lowering emissions, low popular support for nuclear power, and affordable electricity.
art ic l e i nf o
a b s t r a c t
Article history:
Received 9 October 2013
Received in revised form
12 January 2014
Accepted 13 January 2014
Available online 14 February 2014
The Fukushima disaster was a wake-up call for the nuclear industry as well as a shocking revelation of
the inner workings of the Japanese power sector. The political fallout from the event was far-reaching,
pushing governments into abandoning nuclear expansion, turning instead to fossil fuels and renewable
energy alternatives. While the move away from nuclear energy was deemed a move critical to political
survival in Europe, we nd that political candidates running on anti-nuclear platforms did not win
elections, while the pro-nuclear Liberal Democratic Party won government in the 2012 elections. Against
this backdrop, we analyse the energy conict in Japan using a framework of values versus interests and
consider the regulatory and cultural conditions that contributed to the disaster. A number of considerations lie in the way of an organised phase-out of nuclear power in Japan. We also consider the possible
policy paths Japan may take.
& 2014 Elsevier Ltd. All rights reserved.
Keywords:
Fukushima
Energy conict
Politics
Amakaduri
Gakubatsu
Nuclear
n
Corresponding author at: School of Archaeology and Anthropology, The
Australian National University, Canberra, Australia. Tel.: 61 468558576.
0301-4215/$ - see front matter & 2014 Elsevier Ltd. All rights reserved.
http://dx.doi.org/10.1016/j.enpol.2014.01.014
200
Table 1
Spike in Japanese fossil fuel imports post-Fukushima is mostly from the expensive
fuel and crude oil, and natural gas imports (METI, 2011). Values are in million
tonnes of oil equivalent (Mtoe).
Fuel
2009
2010
2011
20102011%
Change
1.1
9.4
61.2
83.4
1.2
9.4
67.7
91.7
3.1
12.9
67.5
100.6
158
37
0.29%
13.5
economy and the Fukushima disaster may however, have now give
grounds for challenging the latter two factors. Indeed, the DPJ have
lost the latest elections, news polls have shown public resistance
to the restart of reactors and there have also been street protests
against further expansion and utility of nuclear power.
The previous Japanese government led by Yoshihiko Noda had
ip-opped on major decisions under pressure from nuclear and
manufacturing industries (Table 2), while struggling to import
substitute fossil fuels. In order to reduce the generating shortfall,
utility companies have had to reactivate aged, disused thermal
plants. This in spike in Japanese fossil fuel import in 2011 (Table 1)
resulted in electricity suppliers suffering huge losses (Sankei,
2012a), which are expected to widen in 2012 as reactors remain
ofine (Sankei, 2012b).
Nuclear power has become unpopular in Japan (Kajimoto and
Nakagawa, 2012). In 2007, only 7% of the Japanese public wished
for nuclear-free electricity, with 21% preferring to reduce reliance,
53% keeping the status quo and 13% supporting an expansion of
nuclear power. Post-Fukushima, a poll saw 70% wishing to cease or
reduce nuclear reliance (Penney, 2012). The Noda government ran
their election campaign partially on a platform to reduce reliance
on nuclear power, but have been voted out of government with
the pro-nuclear Liberal Democratic Party (LDP) headed by (now)
Prime Minister Shinzo Abe returning to power. In light of this
series of events, the phase out of nuclear power in Japan would be
delayed or abandoned. In light of this series of events, the phase
out of nuclear power in Japan would be delayed or abandoned.
This documents the energy conict going on in Asias nuclear
powered economic and technological powerhouse. This paper will
address the absence of drastic modications in Japans nuclear
energy policy on two analytical levels. At the state-societal level,
the electoral victory of the pro-nuclear LDP had stied Japans
progress in abandoning its nuclear energy policy. On the governmental level, the powerful nuclear village in Japan and the
institutionalized practice of Amakaduri had contributed in maintaining the status-quo of Japans nuclear energy policy.
3. Results
3.1. The actors
Political actors can be value or interest actors (Abbott and
Snidal, 2002). Value actors are characterised by uncompromising
beliefs in a normative set of criteria for determining the appropriateness of actions. Interest actors are ends-oriented, and can
make trade-offs in order to optimise the paths to their targets.
Value actors differ from interest actors in that their stand is not a
goal that can be traded off against other competing interests. The
different actors are classied in Table 3.
The government is a value actor with regards to energy
affordability as it deeply affects Japanese economic and energy
security as this cannot be compromised. Pro-nuclear large corporations and their employees can be regarded as interest actors
as their interest in cheap energy can be traded off to some extent,
for example with higher prots or reliable supply or employment
(Adelman and Okada, 2012; Kubota, 2012).
3.2. The institutional barrier
The nuclear village consists of pro-nuclear advocates from
Japans Diet, prefectural governors, bureaucracy such as the
Ministry of Economy, Trade and Industry (METI) and other
regulatory agencies, nuclear vendors, the nancial sector and large
corporations represented by Keidanren (Kingston, 2012). The
village has promoted and built the nuclear industry in Japan,
despite decades of opposition (McCormack, 2011). The main
reason for the proliferation of the Japanese nuclear industry is
due to the occurrence of regulatory capture (The National Diet of
Japan, 2012), a form of government failure where a state regulatory agency advances the interests of the industry it was created to
regulate (Dal B, 2006).
The mechanism for regulatory capture in the Japanese nuclear
industry is an institutionalised practice called amakudari, where
university graduates join a regulatory agency or ministry such as
the METI and retire into powerful executive posts in the corporations they once regulated (Kingston, 2012; Aldrich, 2011). The
source of structural power for amakudari as an institutionalised
practice stems from its control of strategic positions within the
bureaucracies and the corporate realms (Colignon and Usui, 2003).
High-ranking retiring bureaucrats moved into TEPCO, while lowerranking ones moved onto smaller utilities (Onishi and Belson,
2011), and this maintains TEPCOs inuence. For instance, Toru
Ishida, a former agency head in METI had shifted into TEPCO and
was appointed as TEPCOs senior advisor upon retiring from METI
in 2011 (The Japan Times, 2011).
The main nuclear regulatory authority in Japan was the Nuclear
and Industrial Safety Agency (NISA). However as a regulatory body,
it lacked independence. This was because NISA was operating
under the METI, which promotes nuclear energy as an export
industry and as an energy security solution (Iwata, 2012; The
National Diet of Japan, 2012; Turner, 2003). This is a clear
institutional conict of interest. In theory, the elected members
of government represent the interest of the people. However
because legislation and regulation is a public good, the voting
public tends not to actively campaign for regulation. On the other
hand, the regulation is a private good to the industry because it
directly affects their business. Hence corporations will actively
campaign to shape regulations in their favour (Ramseyer, 2012).
When the politicians and the top of the bureaucracy start
promoting the interests of the regulated industry, the regulatory
regimes they are in charge of inevitably serves their vision. Hence
NISA became only a nominal regulator. In practice, 11 out of 19
members of the panel rewriting safety rules come from a lobby
4. Discussion
4.1. Governance challenges: Conicts, contestations and barriers
The actors involved conict on two levels (Table 3). The rst is
an interest conict (competing interests), pitting popular concern
of nuclear risk against the economic interests in low-cost nuclear
energy. The second is a value conict of energy and economic
security versus environmental and safety risks. The embedded
contestation is over the safety risk in seismically-active Japan.
Central to these is an institutional barrier, known as the nuclear
village.
4.2. Interest conict: Popular concern vs cheap energy
Japanese industrial consumption requirement is consistent
throughout the day and therefore draws baseload electricity, as
do households (The Economist, 2011). When the nuclear power
plants were shut down, the low-cost baseload shortfall was largely
made up by expensive fuel oil and LNG (Table 1; METI, 2011). The
use of less efcient and more expensive oil-based thermal generation plants have affected industries and households (Oi, 2012;
201
Table 2
Timeline of relevant post-Fukushima events under the Noda administration.
Date
Event
11 March 2011
Earthquake and tsunami hits Fukushima prefecture and destroys cooling mechanisms at Fukushima Daiichi (Takenaka
and Saoshiro, 2011)
TEPCO asked to decommission all 10 reactors in the Fukushima prefecture (The National Diet of Japan, 2012)
Japanese Prime Minister Noda announces that all reactors of Fukushima Daiichi are in stable, cold shutdown state
(Takenaka and Saoshiro, 2011)
Shutdown of the all in Japan nuclear reactors for safety checks completed (AFP, 2012)
Two reactors in Oi plant restarted under pressure from manufacturers amid public protests (Koh, 2012; McCurry, 2012)
The Japanese National Diet releases ofcial report criticising the government, nuclear regulators and the nuclear
industry (The National Diet of Japan, 2012)
Japan announces plans to phase out nuclear power (Mochizuki et al., 2012; Tabuchi, 2012b)
Government retracts 40-year phase out timescale under industrial pressure (Tabuchi, 2012c)
NISA scrapped and NRA inaugurated under the environment ministry (The Asahi Shimbun, 2012a)
2 December 2011
16 December 2011
5 May 2012
1 July 2012
5 July 2012
14 September 2012
15 September 2012
19 September 2012
Table 3
Table classifying the actors and their priorities in this case study.
Stand/priority
Value actors
Interest actors
Anti-nuclear activist;
Renewable energy activist
Japanese Government
Voting Japanese public: alarmed at nuclear disaster and regulatory failings; lost of trust in
government and regulatory regimes
Large industrial corporations; Sections of Japanese society dependent on nuclear industry for
development and employment; members of the Nuclear Village
Japanese Government
202
203
Acknowledgements
SDF is grateful to Carolyn Hendriks at The Australian National
University for the very helpful comments and discussions on an early
version of the manuscript. The authors also thank two anonymous
reviewers for immense help in revising and improving the manuscript.
204
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