May 2016

Japan’s Climate and Energy Policy and the Status of Coal Power
Kimiko Hirata
International Director, Kiko Network

1. Climate and Energy Policies(1) Policy Structure(DPJ) decided a policy to phase out nuclear power in 2030’s,reflecting strong public opinion in response to the Fukushima
The foundation of Japan’s energy policies is defined by theDai-ichi nuclear accident. Though, the energy plan reversed the“Basic Energy Plan (energy plan)” under the Ministry ofdecision and reassessed nuclear power and coal thermal power
Economy, Trade and Industry (METI)’s Basic Energy Policy Law.
as “important baseload electricity”. It was followed by the
The plan is revised every three year. In line with the plan, thedecision on electricity mix for 2030 in the new outlook. From
Long-Term Energy Supply and Demand Outlook (outlook)”,Figure 1, it seems like the government is undergoing an energy
which quantitatively determines future energy mix while
shift with the reduction in the proportion of nuclear power andconsidering each sector’s energy efficiency, is decided by thethe increase in renewables. However, it doesn’t proof Japan’scommittee of METI. Although it’s called an “outlook”, it bears
energy transition. Firstly, fossil fuel dependence has reachedfeatures of “national targets” which will be a basis of budgetarylevels similar to that of 10 year average before Fukushima, apartmeasures and policy directions. Climate policies, on the otherfrom the reduction of oil-fired plants, which the only old plants
hand, are determined by the “Plan for Global Warning
are remaining. In 2015, nations adopted the Paris Agreement
Countermeasures (climate plan)” under the Ministry of theand agree to reduce greenhouse gas emissions to virtually zero
Environment (MoE)’s Climate Change Prevention Law. This isby the second half of this century. As decarbonisation has
also revised every three year.
become more and more essential, it is a problem that fossil fuelThe energy plan and the climate plan is respectively
dependency by 2030 have largely remained unchanged.
considered through separate process and the results of which is
Secondly, 20-22% of nuclear power poses a crucial feasibility
not necessarily be released at the same time. However, sincequestion. To meet this given target (assuming 70% capacity
approximately 90% of Japan’s total greenhouse gas emissions
factor), roughly 37GW of nuclear capacity is necessary.
originate from energy related activities, the nature andHowever, at this point in time, 14 reactors have declared intent
foundation of the climate policies is substantially determined
to decommission, including those in Fukushima. In addition, thewhen energy policies are decided. In addition, it is customary forcurrent nuclear capacity of 40GW must fall by half to 20GW by
the climate policies to only conform to energy policies. It has
2030 if the 40 years unit lifetime based on the government
been argued for a long time that integration of climate andprovision is applied1). This means, without prolonging the unit
energy policies is inevitable, but it’s not yet realized.
lifetime or building new reactors, it’s impossible to meet thetarget. Furthermore, only two reactors are in operations with
(2) Current Policies
the rest dormant. What’s more, the strong public opposition to(a) Energy Policies
restart reactors renders the target even more unrealistic.
The current energy plan was revised under the current
On the other hand, the long-awaited feed-in tariff systemadministration led by Prime Minister Abe in 2014. Prior to this,introduced in July 2012 demonstrated a success in adopting
the former administration of the Democratic Party of Japansolar power. It drove an increase in the share of renewablesfrom 10% in FY2010 to 15% in
10 YEARS AVERAGE
2030 OUTLOOKFY2015 (from 1% to 4.7%,
oil
BEFORE NUCLEAR ACCIDENT
renewables
3%
oil
excluding large hydro) in
renewables
23%
coal
12%
11%
26%
electricity generation. However,2030 target of renewables is acoal
nuclear24%level that can be easily met with26%
the existing plans by renewablenuclear21%
energy developers. Taking rapid
LNG
LNG
27%
27%
installations in recent years anddemand for energy transition into
Figure 1 2030 Electricity Mix Outlook（Source：Agency of Natural Resource and Energy）

1account, this target is too low.
Overall, 2030 electricity mix should be seen that the
government is intended to return the energy system as muchthe same as before the nuclear accidents.

42GW, owned by 10 major utilities and wholesales power
utilities 2)．There are many units operating longer than 40 years,
but the capacity per unit of those is small. In contrast, newly
developed capacity per units is large and many. 80% of total
capacity are operating less than 30 years, and 55% of them
operates less than 20 years（Table 1）．It’s believed that theseplants will continue to operate over the next few decades.

(b) Climate Policy
The government approved the new climate plan in May 2016
after the historic Paris Agreement was adopted. In fact, there
hasn’t been no such a “climate plan” since 1st commitment
period of the Kyoto Protocol was over in 2012 because thecountry opted not to participate in the Kyoto Protocol’s 2nd
commitment period so as to not have subject to international
climate obligation. Three years lack of the national framework
to tackle with climate change put the climate issue very low
profile in Japanese politics. While the new plan followed by theParis Agreement includes a long term target to reduce GHG by
80% by 2050, it entirely reflected the energy policy and its
energy mix. It also set a 26% GHG reduction target for 2030 from
FY2013, which is actually equivalent to 18% reductions from thelevel of FY1990. Various reports and analysis, such as Climate
Action Tracker, pointed out that the target fails to meetinternational standards compared to Japan’s fair share. But, thegovernment didn’t consider raising its ambition at all.
Additionally, as a measure to meet the target, the government
decided to allow industry sector to continue their voluntaryactions and didn’t take any additional measures, such as pricing
on carbon or regulations to improve energy efficiency etc. It has
been proved that climate policy in last decades doesn’t
demonstrate that its greenhouse gas reduction is not sufficient,but the new plan remains unaltered and authorized thecontinuation of existing policies. This is inadequate as a
response to the Paris Agreement and by no means consistent
with the Japan’s long term target of 80% reduction by 2050. This
places a heavy burden on the next generation.

Table 1 Existing coal power (capacity and number)
operation
years

operation
start year

capacity（GW）

No. of
units

40 ~
30～39

～1975
1976～1985

3.54GW
4.89GW

18
12

20～29
~ 20

1986～1995
1996～

10.47GW
22.95GW

194541.85GW

94（Total）
Source：『電気事業便覧』(2) New coal power plans
Announcements to build new coal power have dramaticallyincreased since the second half of 2013. As of now, the plans
have a capacity of 22.5GW (for 47 units) in total. This includes
small scale plants less than 150MW that the Environmental
Impact Assessment (EIA) is not required (Table2)3). 9 units out ofthem are replacement to the old ones, but the capacity will
expand from 1500MW to 2300MW due to scale up of the units
size．Even if all of old plants operating for more than 30 years(8430MW) were to be shut down, a capacity would exceed
14.07GW compared to the current level.
If all of these are built, additional CO2 emissions per year willbe 135Mt- CO2. This amount equals roughly 10% of total GHG
emissions in FY2014. And if these new plants operate for 40
years until 2050, the emissions from new coal power will lock-in
the half of the estimated total GHG emissions (250Mt-CO2)
under the target of 80% reduction (compared to 1990).
Progress of these new plans have quickened and as of May，
3,170MW has already started construction, and 15.05GW isundergoing the process of EIA. Coal power developers are not
only utility and wholesale electricity utility, but also companies
from different business sectors, such as iron and steel, trade, gas,
paper & pulp, etc. Many of these companies started or plan tostart electricity sales due to the fully liberalized electricity
market from April 2016.

２．Massive Coal Power Increase(1) Existing coal power
Power sector is the biggest source of Japan’s greenhouse gas
emissions, which accounts for 34% in FY2014, and coal power is
responsible for approximately 20% of the total CO2 emissions.
Japan has continued to construct new coal plants even after
1990 and has been operating the plants with high capacity factor.
Consequently, the proportion of coal power in electricity
generation has increased dramatically, from 9.7% in 1990 to
18.4% in 2000, 25.0% in 2010, and 31.0% in 2014. Due to theincrease in coal power alone, Japan’s CO2 emissions haveincreased by 13% compared to 1990 level.
There are currently 94 coal power plants, approximately(3) Coal-related Policy Developments
There are political contexts to accelerate such massive newcoal power plans. Several policies changes have been madeafter nuclear accidents. First one is the decision to acceleration2

of EIA procedures for coal power. As a part of the industry
deregulation policy, the government decided to shorten therequired period of whole EIA process and sent green light toallow replacement from old coal power. Second one is newly
introduced bidding system for construction of new thermal
power. To reduce electricity costs, new thermal power
development are required to go through bidding system byutilities. This decision paves the way for low-cost coal than gas.
Third one is an agreement by MoE and METI, which asked
power sectors to establish a framework to reduce CO2 emission
voluntarily.
After these policy changes were made, a number of new
projects were announced. Especially first 2 coal projects
through bidding by Tokyo Electric Power Company (TEPCO) in
July 2013 became a trigger for the many following projects.
The scale of the current plans is so significant as it exceeds the
proportion of coal power (26%) of the government’s 2030
electricity mix．METI, even though they supports and promotes
coal use and the construction, has decided to introduce newpolicy measures in 2016. Their first measure is a revision ofefficiency standards for new thermal power plants. The Ultra
Super Critical (USC) plants (generation efficiency: >42.0%, HHV)
is set for coal power and Combined Cycle Gas Generation level(generation efficiency: >50.5% HHV) for LNG. However, theprojects already undergoing through the bidding process or the
EIA process will be excluded, therefore most of the new plans
will not be affected by these new standards. The other measure
is to set benchmark standards for existing plants. There are two
indicators: generation efficiency for each electricity source (Coal
41%, Gas 48%, Oil 39%) and combined efficiency for all thermal
power (44.3%)．To meet the standards, companies that have
many coal plants have to increase their LNG proportion or
decrease their utilization rate for coal power. This could bring
reduce coal power to some extent. However, the standards
themselves are voluntary, not mandatory, and data, such as

assess company performance, will not be disclosed. Thus, theeffectiveness of these measures is very unclear. And, at any rate,the 2030 target of coal share is so high, these measures are
anyway inadequate even if they are fully implemented.
MoE once revealed a clear position to challenge the newplants in regards to inconsistencies with the national GHG
emission target for 2030. The Environment Minister submitted
his/her opinion not to accept the projects 5 times during the EIA
process in 2015. However, in February 2016, MoE changed theirposition and accepted proposals for the construction of newplants with some conditions. The MoE explained the reasons for
acceptance because METI will introduce new measures and
MoE will assess the progress by receiving information fromMETI on policy implementation.
Overall, it is fair to say that the government has yet to set
policies and measures to restrict new coal power development,
accelerate the shutdown of existing coal plants and reduction ofcoal power’s capacity factor. Especially a situation where anuclear restart is extremely uncertain, a likely scenario would bea massive development of new coal power and starting
operations above the 2030 target level. Recently, it became wellknown that the new coal power construction is not consistent
with meeting the global average temperature limit of 1.5℃ to
2 ℃, making it clear that investment has to shift clear away fromcoal. In addition, in regards to Japan’s new plans, an increase inhealth impacts and risks of stranded assets has been pointed
out. Political risk is also high if Japan continues its position
against the international trend towards decarbonisation.
Therefore, it is urgent in Japan to integrate of climate andenergy policies, especially policies for coal power, and to shift
towards renewables．
1)
2)

Takahashi, H. (2014）「原子力 20-22％は現実的なのか？」
http://renewable-ei.org/column/column_20150521.php
In addition, there are a number of industry-owned coal power facilities.

～ Kiko Netwrok Activities ～← Kiko Network regularly watches the development of new plans for coal
thermal power projects and updates their status regularly. Detailed data on
these projects can be downloaded (excel format).
↓You can enjoy “Anti-CoalMan”’s animated series (Japanese only).

http://sekitan.jp/plant-map
http://sekitan.jp/anticoalman/

generation efficiency or capacity factors, which is needed to3

3)

Japan’s Coal Plant Tracker (Kiko Network)，As of 17 May, 2016．http://seTable 2 New coal power plans(English is available at, sekitan.jp/plant–map/)

地域

発電所名

企業名／運営会社

親会社／出資者等

設備容量(万t-CO2/

実施中

CFB

67.2

不明

公式発表なし

不明

60

国

実施中

USC

390

アセス状況

2019

地方条例

10

不明

65

2024年6月

運転開始予定

CO2排出

発電技
術
（注1）

アセスメン
ト

（万kW）

年)（注2)

釧路コールマイン㈱、 F-Power㈱、北海道 釧路火力発電所㈱ 釧路火力発電所

IDI インフラストラクチャーズ㈱、11.2

太平洋興発㈱東北

発電所名不明前田建設工業㈱秋田

秋田港発電所(仮) 2号機

関電エネルギーソリューション

秋田

能代3号機

東北電力

60

2020年6月

アセスなし

建設中

USC

314

秋田

日本製紙秋田工場発電所

日本製紙

11.2

2018年11月

地方条例

実施中

PC

76.3

秋田

秋田港発電所(仮) 1号機

関電エネルギーソリューション

宮城

仙台パワーステーション

仙台パワーステーション

宮城

石巻雲雀野発電所1号

日本製紙石巻エネルギーセン
日本製紙（70%）、 三菱商事（30%）
ター㈱福島

大型石炭ガス化複合発電設備実証
計画（勿来）

関西電力

関西電力

65

2024年3月

国

実施中

USC

390

関電エネルギーソリューション、 伊藤忠エ

11.2

2017年10月

アセスなし

建設中

不明

67.2

14.9

2018年3月

アセスなし

建設中

不明

89.4

国

実施中

IGCC

262

ネクス

福島復興電源コンソーシアム、 東京電
常磐共同火力力、 三菱重工業、 三菱商事、 三菱電機、

54

常磐共同火力福島

大型石炭ガス化複合発電設備実証
計画（広野）

2020年代初頭（予定）

福島復興電源コンソーシアム、 東京電
東京電力

力、 三菱重工業、 三菱商事、 三菱電機、

54

2020年代初頭

国

実施中

IGCC

262

常磐共同火力福島

相馬中核工業団地内発電所

相馬共同自家発開発合同会社

11.2

2018年3月

地方条例

実施中

PC

67.2

福島

いわきエネルギーパーク（株）エイブル

11.2

2018年4月

地方条例

実施中

PC

67.2

福島

発電所名不明相馬共同火力発電

100

不明

不明

公式発表なし

不明

600

福島

エム・セテック相馬工場内発電所

オリックス㈱11.2

2018年度

地方条例

建設中

PC

67.2

茨城

鹿島火力発電所2号機

鹿島パワー

電源開発、 新日鐵住金

65

2020年7月

国

実施中

USC

343.9

丸紅、 関西電力（関電エネルギーソリュー

茨城

発電所名不明（かみすパワー）

茨城常陸那珂共同火力発電所１号機

常陸那珂ジェネレーション

千葉

市原火力発電所

市原火力発電合同会社

東京電力、 中部電力、 東北電力

11.2

2018年

不明

公式発表なし不明

60

東京電力、 中部電力

65

2021年前半

国

実施中

USC

390

関電エネルギーソリューション（Kenes)、

100

2024年

国

実施中

USC

600

100

2020年前後ション）

東燃ゼネラル石油

千葉

発電所名不明中国電力

不明

公式発表なし

不明

600

千葉

千葉袖ケ浦火力発電所1号機（仮）千葉袖ケ浦エナジー

九州電力、 出光興産、 東京ガス

100

2025年

国

実施中

USC

600

千葉

千葉袖ケ浦火力発電所2号機（仮）千葉袖ケ浦エナジー

九州電力、 出光興産、 東京ガス

100

2026年

国

実施中

USC

600

千葉

発電所名不明

関西電力

100

不明

不明

公式発表なし不明

600

神奈川 横須賀火力発電所

東京電力

100

2020年

不明

公式発表なし

USC

600

静岡

鈴川エネルギーセンター

鈴川エネルギーセンター

10

2016年9月

アセスなし

建設中

PC

60

愛知

発電所名不明名南共同エネルギー㈱3.1

2018年1月

アセスなし

計画中

PC

18.7

107

2022年3月

国

実施中

USC

642

11

2016年度下期 アセスなし

建設中

汽力

66

日本製紙（20%）、 三菱商事（70%）、 中部電力（10%）
名港海運（49.75%）、 西華産業
（49.75%）、 日本エネルギーパートナーズ（0.5%）

愛知

武豊火力発電所 5号機

中部電力

愛知

名古屋第2発電所

中山名古屋共同発電

三重

発電所名不明

11.2

2019年

地方条例

実施中

PC

67.2

兵庫

赤穂発電所（現・1号機）

関西電力

60

2020年

地方条例

実施中

SC

335

兵庫

高砂新2号機電源開発

60

2027年度

国

実施中

USC

360

兵庫

高砂発電所新1号機
神戸製鉄所火力発電所（仮） 新設１

電源開発

60

2021年度

国

実施中

USC

360

神戸製鋼所

65

2021年度

国

実施中

USC

390

神戸製鋼所

65

2022年度

国

実施中

USC

390

関西電力

60

2020年

地方条例

実施中

SC

335

中国電力

100

2022年11月

国

実施中

USC

600

11

2017年夏

アセスなし

建設中

不明

66
70.6

兵庫
兵庫

号
神戸製鉄所火力発電所（仮）
新設2

兵庫

号
赤穂発電所（現・2号機）

島根

三隅発電所2号機

岡山

水島エネルギーセンター

広島

石炭ガス化燃料電池複合発電実証
事業
竹原発電所新1号機

広島
山口

広島

MC川尻エネルギーサービス㈱

水島エネルギーセンター

ガスアンドパワー（95%）、 中山製鋼所（5%）、 大阪ガス
三菱商事

関電エネルギーソリューション、 三菱商事、 三菱化学16.6

2017年3月

国

建設中

IGCC

電源開発

60

2020年6月

国

建設中

USC

316

海田バイオマス混焼発電所

広島ガス㈱

11.2

2019年

地方条例

実施中

CFB

67.2

西沖の山発電所（仮）2号機

山口宇部パワー㈱電源開発、 大阪ガス、 宇部興産

60

2025年

国

実施中

USC

360

中国電力、 エア・ウォーター㈱

11.2

2018年

地方条例

実施中

CFB

67.2

電源開発、 大阪ガス、 宇部興産

60

2023年

国

実施中

USC

360

50

Mar-23

国

実施中

USC

300

2017年度

地方条例

完了

PC

67.2

大崎クールジェン（株）

エア・ウォーター＆エネルギ

中国電力（株）、 電源開発（株）

山口

発電所名不明山口

西沖の山発電所（仮）1号機

山口宇部パワー㈱愛媛

西条発電所新1号機

四国電力

福岡

発電所名不明響灘エネルギーパーク合同会社

オリックス㈱、 ホクザイ運輸

11.2

福岡

響灘火力発電所（仮）（株）響灘火力発電所（株）IDIインフラストラクチャーズ

11.2

不明

地方条例

実施中

PC

67.2

長崎

松浦発電所2号機

九州電力

100

2020年6月

アセスなし

建設中

USC

600

宮崎

発電所名不明旭化成ケミカルズ

6

2018年3月

アセスなし

計画中

汽力

36

ア・パワー山口㈱（注 1）CFB=循環流動層ボイラー，PC=微粉炭ボイラー，SC=超臨界圧，USC=超々臨界圧，IGCC=石炭ガス化複合発電（注 2）環境アセスメント書に記載がない場合は推計値
Source：Japan Coal Plant Tracker（http://sekitan.jp/plant-map/）4