Serbia is advancing its evaluation of nuclear energy as a potential cornerstone of its future energy strategy, following a comprehensive preliminary study by the French energy firm EDF. This report, created in collaboration with Serbia’s Ministry of Mining and Energy, delineates a structured path for the establishment of a nuclear program, outlining 19 essential steps necessary for the country to consider building a nuclear power plant.
While the study does not confirm any decision to construct nuclear facilities, it serves as a foundational framework based on guidelines from the International Atomic Energy Agency (IAEA). The report highlights critical regulatory, institutional, and technical steps needed for nations embarking on nuclear energy generation for the first time.
Currently, Serbia’s electricity generation is predominantly reliant on lignite-fired power plants operated by Elektroprivreda Srbije (EPS), which account for approximately 65–70 percent of the national electricity output. This heavy reliance on coal positions Serbia among the most coal-dependent electricity systems in Europe. Major lignite plants such as Nikola Tesla A and B and the Kostolac complex are central to the country’s baseload generation capacity. However, these facilities are increasingly pressured by European climate policies and emerging carbon pricing mechanisms.
In response to these challenges, Serbia is also enhancing its renewable energy capacity through auctions and private investments in wind and solar projects. These renewable sources introduce variability into the electricity supply, underscoring the need for stable baseload generation. Thus, nuclear energy is being considered as a long-term complement to renewables rather than an outright substitute for coal.
The EDF report identifies 19 preparatory actions aligned with IAEA’s phased development model, which outlines necessary steps before constructing and operating nuclear power plants. The initial phase emphasizes establishing a national policy framework and creating institutions responsible for nuclear governance. This involves drafting relevant legislation, forming regulatory bodies, and developing safety oversight structures. The subsequent phase focuses on technical preparations such as site selection and feasibility studies for reactor technologies, while the final phase addresses project development readiness.
Even under optimistic scenarios, it is estimated that completing these early phases could take five to seven years before any construction on a nuclear facility can commence. The financial aspect remains a significant hurdle; conventional nuclear power plants typically require capital investments ranging from €8 billion to €12 billion per unit. Such expenditures would represent one of Serbia’s largest infrastructure commitments historically, necessitating partnerships with international energy firms, export credit agencies, and multilateral lenders.
Countries pursuing nuclear projects often utilize complex financial frameworks incorporating government guarantees and long-term power purchase agreements. Given Serbia’s total GDP of approximately €70 billion, careful fiscal planning and international cooperation will be essential for such substantial investments.
In recent discussions, small modular reactors (SMRs) have gained traction as an alternative to traditional large-scale nuclear plants. SMRs generate electricity in smaller units ranging from 50 MW to 300 MW per reactor, offering advantages such as lower initial capital requirements and modular construction capabilities. For Serbia, where peak electricity demand hovers around 7–8 gigawatts, SMR technology could provide a more adaptable pathway toward nuclear energy integration.
Nuclear energy presents an opportunity to deliver stable baseload electricity without carbon emissions. As renewable sources like wind and solar projects expand across Southeast Europe—supported by Serbia’s own renewable energy initiatives—nuclear power could play a vital role in addressing system balancing challenges due to its continuous high capacity factor.
Several countries in Southeast Europe already participate in regional nuclear power generation through interconnected electricity markets. Romania operates the Cernavodă nuclear power plant while Hungary is expanding its Paks facility through the Paks II project. Developing domestic nuclear capabilities would signify a strategic shift for Serbia’s energy policy towards alignment with Central European systems.
However, developing a robust nuclear program requires not only financial investment but also specialized human resources and strong regulatory institutions. Serbia must cultivate expertise among engineers, safety specialists, inspectors, and operational personnel adept at managing complex nuclear facilities. Partnerships with international providers will be crucial in building this human capital infrastructure.
Political considerations also play a significant role in advancing nuclear energy initiatives. Currently under a moratorium established post-Chernobyl in 1986 during Yugoslavia’s existence, any move towards nuclear development would necessitate legislative amendments and broad political consensus. Public acceptance remains vital as societal debates often accompany proposed nuclear projects.
The EDF study emerges at a pivotal moment as Serbia reassesses its long-term electricity strategy amid decarbonization efforts of coal plants and growing electricity demand driven by economic expansion. Even with favorable timelines for initiating nuclear development soon, operational capacity may not materialize until the mid-2030s at the earliest.
Ultimately, Serbia’s exploration of nuclear energy reflects broader trends within Europe as nations seek to balance decarbonization objectives with energy security needs. For Southeast Europe—characterized by rising electricity demands alongside dominant coal usage—the introduction of nuclear energy could significantly alter regional power dynamics. The decision-making process surrounding Serbia’s potential venture into nuclear power will depend on forthcoming political choices, financial viability assessments, and technological advancements over the next decade.
