The headline has been chosen to strongly imply causality, but the author has made sure to not actually claim that. (Likewise, in the main text (my emphasis): "

The headline has been chosen to strongly imply causality, but the author has made sure to not actually claim that. (Likewise, in the main text (my emphasis): "The policy initiative... follows criticism that Japan is reluctant to break with such power generation...") And of course, the author had complete freedom to choose a totally different potential cause to juxtapose with this policy change, and so could tell just about any story they wanted regardless of the facts.