The hulking system that once guided Japan's pronuclear power stance worked just fine when everybody moved in lock step, but its size and complexity have proved ill-suited for resolving conflict at a time of nuclear crisis.
Nearly a year after the triple meltdowns at the Fukushima No. 1 power plant, decision-makers still can't agree on how to safeguard reactors against future accidents, or even whether to operate them at all.
Some experts say this indecision reflects the Japanese tendency to search for — and sometimes depend on — consensus, even when there is no prospect of one emerging.