After three decades of dormancy, Serbia is embarking on a transformative journey to integrate nuclear energy into its national power grid. By lifting a 35-year moratorium on nuclear construction in late 2024, the government has set an ambitious course to establish a secure, clean, and sustainable energy future. With the aim of breaking ground on its first nuclear facility by 2035, Belgrade is meticulously following the International Atomic Energy Agency’s (IAEA) "Milestones Approach"—a rigorous, phased methodology designed to guide nations through the complexities of nuclear infrastructure development.
The Strategic Imperative: Why Nuclear?
As the global economy enters an "era of electricity," driven by the proliferation of energy-intensive data centers, the rapid expansion of artificial intelligence, and the wholesale electrification of industry and transport, Serbia faces a looming supply-demand gap. Minister of Mining and Energy Dubravka Đedović Handanović has been clear: meeting these escalating energy requirements with clean, baseload power is functionally impossible without the inclusion of nuclear energy.
For a nation traditionally reliant on aging coal-fired power plants, the transition is not merely an environmental choice but a survival strategy. Nuclear power offers a path to energy independence, insulating the Serbian economy from the volatility of international fossil fuel markets while simultaneously meeting stringent European decarbonization targets.
Chronology of a Resurgent Programme
The path to 2035 is paved with careful, incremental steps. The following timeline illustrates the evolution of Serbia’s nuclear ambitions:
- 1989: The former Yugoslavia implements a moratorium on nuclear power plant construction following international concerns and domestic political shifts.
- 2021: During COP26, President Aleksandar Vučić initiates high-level discussions with Hungary regarding potential co-ownership stakes in the Paks nuclear expansion.
- Late 2024: The Serbian government officially repeals the 35-year ban on nuclear power, signaling a formal commitment to the technology.
- March 2026: The government integrates a comprehensive nuclear plan into its "Serbia 2035" national strategy, earmarking an initial €3bn ($3.4bn) for the programme.
- June 2026: EDF delivers a foundational technical study confirming that both large-scale Generation III+ reactors and Small Modular Reactors (SMRs) are viable for the Serbian grid.
- July 2026: The Vinca Institute for Nuclear Sciences and the Faculty of Technical Sciences in Novi Sad sign a memorandum of understanding to launch a dedicated master’s degree program, aiming to address the critical deficit in domestic nuclear engineering talent.
- Present: The National Nuclear Energy Programme Implementing Organisation (NEPIO) is actively managing the first phase of the IAEA Milestones Approach, focusing on regulatory, legal, and safety assessments.
The IAEA Milestones Approach: A Systematic Framework
The IAEA Milestones Approach is the bedrock of Serbia’s strategy. This methodology ensures that a nation does not rush into construction without the foundational "soft infrastructure" required for safety and oversight. The process is divided into three phases, requiring the evaluation of 19 specific infrastructure issues, including radioactive waste management, grid stability, and nuclear security.
Minister Handanović emphasized that the current focus is on completing these foundational studies. "We have defined the project tasks for the preparation of all necessary studies," she noted. The government is currently collaborating with Electricité de France (EDF) to produce four primary studies in the first phase, with 14 additional studies currently being evaluated in consultation with international firms that possess extensive experience in global nuclear deployment.
Supporting Data and Financial Architecture
The financial scope of the project is substantial. The government has allocated €3bn toward the nuclear program as part of a larger €14.4bn national energy development strategy. Approximately €30m is currently dedicated specifically to completing the first two institutional phases of the IAEA roadmap.
Technical Specifications
- Target Capacity: 1.2GWe to 1.65GWe.
- Technology Focus: Strict adherence to commercially mature Generation III+ technologies; Serbia has formally ruled out experimental Generation IV reactors to minimize technical and financial risk.
- Infrastructure: A coalition of five ministries, 20 scientific faculties, and state-owned utilities has been formed to ensure a "whole-of-government" approach to human capital development.
The government is also exploring innovative financing models. Beyond domestic budgeting, Serbia is in active talks with the French Development Agency for potential credit lines and risk-sharing agreements. Furthermore, the persistent proposal to acquire a 5–10% stake in Hungary’s Paks II project remains a key pillar of the strategy, allowing Serbia to gain institutional experience and immediate power supply while its own domestic construction matures.
Global Partnerships and Competitive Bidding
While Serbia’s regulatory framework is leaning heavily toward Western (specifically French) safety norms, Belgrade is maintaining a pragmatic, non-aligned diplomatic stance regarding project delivery. The government is effectively turning the nuclear sector into a competitive arena to secure the best possible terms:
- France (EDF): The primary partner for preliminary studies and a leading candidate for technical oversight.
- China: Submitted a formal proposal in May 2026 offering modular reactors, highly competitive financing, and accelerated construction timelines.
- Russia (Rosatom): Held high-level bilateral talks in 2025 regarding SMR designs and educational placements for Serbian students.
- United States & South Korea: Both nations have filed formal expressions of interest, pitching their respective reactor designs to the Ministry of Mining and Energy.
Implications: Building the Intellectual Capital
Perhaps the most significant challenge facing Serbia is not just the engineering of the reactor, but the engineering of the workforce. The 35-year moratorium resulted in a "brain drain" of nuclear expertise. By launching specialized master’s programs at the Vinca Institute and the University of Novi Sad, the government is attempting to rebuild the intellectual capital necessary to operate a nuclear fleet safely.
"Without local experts, there is no successful nuclear programme," Handanović stated. The vision is to cultivate a new generation of engineers who will view the 2035 project not as an imported commodity, but as a domestic achievement.
Looking Toward 2035: A Generational Opportunity
The road ahead is demanding. Completing the first phase of the IAEA milestones by mid-2027 is a critical goal, as it will provide the data necessary to finalize the selection of technology. By 2032, the government expects the regulatory, institutional, and professional groundwork to be complete, setting the stage for the commencement of construction in 2035.
The stakes are high. As Minister Handanović observed, this is a "generational opportunity." For Serbia, nuclear power represents a move away from the status quo of high-emission, vulnerable energy systems toward a resilient, sovereign, and technologically advanced future. While the timeline is long and the challenges—ranging from public perception to complex international financing—are non-trivial, the government’s systematic adherence to global safety and development standards suggests that Serbia is serious about reclaiming its place in the nuclear energy landscape.
By balancing international partnerships with a focus on domestic capacity, Serbia is positioning itself as a central player in the Balkan energy transition, ensuring that when the "era of electricity" fully arrives, the nation will be ready to power its growth with the reliability and sustainability only nuclear energy can provide.
