TOKYO -- Tokyo Electric Power Co. Holdings (TEPCO) looks to finally restart a nuclear reactor 14 years after the Fukushima Daiichi disaster, but the plant operator still faces an uphill battle in rebuilding its finances, including a mountain of debt and a distrustful public.

The governor of Niigata prefecture in central Japan on Friday gave the green light for TEPCO to restart the No. 6 and No. 7 reactors at the Kashiwazaki-Kariwa nuclear power plant for the first time since 2012.

If the startup preparations for reactor No. 6 proceed smoothly, control rods will be removed by January, making it operational. Commercial operation is expected to begin before the end of March next year.

While the restart will help improve its cash flow, TEPCO's full-scale business restructuring will depend on how many nuclear reactors it can get up and running.

Kashiwazaki-Kariwa has reactor Nos. 1 through 7, and No. 7 has already passed a national safety inspection. The construction of a safeguard facility against terrorism is currently underway at No. 7, which will be ready to restart after August 2029. While a shortage of personnel remains an issue, extending the grace period for installing the facility would allow for a faster restart.

TEPCO is considering decommissioning Nos. 1 and 2. It has not applied for permission to restart Nos. 3 to 5, which would require additional investment in safety measures. Given its weak finances, those costs could be too much for the company to bear.

Construction of a planned nuclear plant in northern Japan's Aomori prefecture has been suspended since the March 2011 earthquake and tsunami that knocked out the Fukushima Daiichi plant.

In late 2017, Kashiwazaki-Kariwa passed new safety standards established by the Nuclear Regulation Authority after the Fukushima disaster. In January 2018, the head of the Agency for Natural Resources and Energy appealed to Niigata's governor to allow the restart of the plant in a bid to obtain local consent.

But from 2020 on, a series of problematic incidents came to light, including fraudulent use of employee ID cards and inadequate anti-terrorism measures. The NRA imposed a de facto ban on operations at Kashiwazaki-Kariwa in 2021, halting the restart process. The ban was lifted at the end of 2023, but distrust of TEPCO remains deeply rooted.

In a survey of Niigata residents released by the prefecture in November, 69% of respondents said they were concerned or somewhat concerned about TEPCO operating nuclear power plants.

"Restoring the trust of the local community will not be easy," TEPCO President Tomoaki Kobayakawa has said. The company is taking steps, including establishing a council in October to externally monitor the plant's operations.

The 2011 Fukushima Daiichi nuclear disaster left TEPCO saddled with debt to the Japanese government. The total cost of dealing with the incident, including decommissioning the plant and compensating victims, comes to 23.4 trillion yen ($150 billion), with TEPCO alone needing to cover 17 trillion yen.

The company temporarily secured funds by borrowing from the government, and it has been repaying 500 billion yen of this debt per year.

But worsening earnings in recent years have hampered its ability to make those payments. TEPCO announced in October a net loss of 712.3 billion yen for the April-September half amid the mounting cost of preparing for debris removal -- a particularly tough step in decommissioning Fukushima Daiichi.

TEPCO's turnaround plans are based on the premise of a restart at Kashiwazaki-Kariwa. Bringing one reactor back online is expected to improve the utility's earnings by 100 billion yen a year, in part by lowering its procurement costs. A restart will make it easier to set revenue and spending plans, in turn facilitating borrowing from banks and issuing debt.

Restarting the No. 6 reactor at Kashiwazaki-Kariwa is just one step in the turnaround process. TEPCO faces heavy upfront spending on safety measures and expanding transmission capacity. Capital spending in fiscal 2024 totaled 860 billion yen, the highest of any year going back to 2011.

With debris removal not expected to get fully underway until fiscal 2037, decommissioning costs are likely to overshoot the 8 trillion yen estimate.

Since Japan liberalized the retail market for electricity in 2016, emerging power providers have been peeling customers away from TEPCO. Other utilities that have restarted nuclear plants have been bringing down their rates to compete.

TEPCO, on the other hand, set its current rates on the assumption that two of its nuclear reactors are online. "Even with a restart, it'll be hard to cut our rates," a TEPCO executive said.

TEPCO's free cash flow was negative for seven straight years through fiscal 2024, for a total of 1.7 trillion yen in the red. It had 621.8 billion yen in cash and deposits as of September, down roughly 40% from a year earlier. Even after the No. 6 reactor resumes operation, it will take several years for cash flow to turn positive.

"It's a drop in the bucket toward a turnaround," a TEPCO executive said.

Japan now has 68 nuclear reactors built or in the planning stages, according to the Federation of Electric Power Companies of Japan. Of these, 14 are in operation, 12 are pending review or otherwise on track toward restarting, and 24 are slated for decommissioning, with the rest having no applications to restart.

Construction of new nuclear power plants and expansion of existing ones, which had been halted since the Fukushima Daiichi disaster, is getting back underway, with Kansai Electric Power starting site surveys this year. If TEPCO's governance frays, public opinion on nuclear power could sour again, potentially affecting other utilities' plans as well.

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