Serbia’s plans to develop nuclear power are moving towards a decision-making phase, but building the workforce and institutions required for a nuclear programme could take significantly longer than constructing a reactor.
Christophe Lecourtier, chief executive of the French Development Agency (AFD), told Nova Ekonomija that Serbia’s nuclear ambitions should be approached as a long-term effort to develop technical expertise, institutions and regulatory capacity. A reactor could be built in around 10 years, Lecourtier said, while developing the skills needed for design, safe operation and supervision would require much more time. The issue is becoming increasingly important as Serbia works towards a programme that could eventually deliver its first nuclear generating capacity around 2040. The government expects studies required for an informed decision to be completed by mid-2027, with regulatory, institutional and technical capabilities to be developed afterwards. Serbia aims to be prepared for technology selection and the start of contracting by around 2032, making workforce development a key element of the timetable.
France Supports Nuclear Capacity Building
France is becoming one of Serbia’s main partners in preparations for a potential nuclear programme. French utility EDF has completed a preliminary technical study on the development of peaceful nuclear energy in Serbia. The study identifies 19 key steps based on the framework of the International Atomic Energy Agency (IAEA).
Serbia, EDF and AFD signed a partnership agreement covering professional, organisational and institutional capacity building. AFD is providing a €500,000 grant to support the development of expertise needed during the first phase and part of the second phase of the programme. A human-resources study began in September and is intended to establish the number of specialists Serbia would need and identify the largest gaps in available capabilities. The assessment covers universities and training institutions, as well as regulators, engineering organisations and the future nuclear operator.
Workforce Development Extends Across the Nuclear Sector
A potential Serbian nuclear programme would require specialist engineers, physicists, safety experts, regulators, construction specialists and operators. It would also require independent institutions capable of supervising the sector over several decades. Serbia currently does not have a complete legal and institutional framework for a nuclear programme. The skills requirements would therefore extend beyond the selection of reactor technology, whether Serbia ultimately considers conventional large reactors or emerging smaller technologies.
Serbia would also need to determine how much of the future nuclear supply chain could be supported by domestic companies. Potential areas include engineering, construction, electrical equipment, automation and industrial services. Nuclear qualification requirements are stricter than those for conventional power infrastructure, meaning the development of a domestic supplier base would also require years of preparation.
Nuclear Plans Form Part of Broader Energy Investment
The potential nuclear programme is being developed alongside a wider restructuring of Serbia’s electricity system. A substantial share of existing generation remains dependent on lignite, while electricity demand is expected to rise as industry, transport, heating, data centres and other parts of the economy become more electrified.
Renewable generation is expanding, while Serbia is also expected to invest in transmission infrastructure, storage, flexible generation and cross-border connections. The government has indicated an energy investment cycle exceeding €14 billion through 2035. Nuclear power is being considered as a potential source of stable low-carbon generation beyond that period, alongside rather than instead of the current expansion of wind and solar capacity. AFD is already involved in Serbia’s broader energy transition. Lecourtier said the agency’s project portfolio in Serbia exceeds €1.1 billion, covering energy-sector reforms, electricity-grid modernisation, railways, urban mobility and environmental infrastructure.
Since 2023, AFD, the World Bank and Germany’s KfW have also worked on two programmes worth a combined €270 million to support implementation of Serbia’s green-transition policies.
2026–2032 Period Sets Workforce Preparation Timeline
If Serbia is to have nuclear generation operating around 2040, development of education, technical expertise and institutions would need to begin before a final reactor procurement decision. University students entering engineering and related fields during the current decade could form part of the workforce involved in the construction and operation of Serbia’s first nuclear facility. The programme therefore encompasses education and industrial development as well as energy infrastructure.
Before Serbia could procure a reactor, it would need regulatory institutions capable of supervising the facility, organisations able to manage the programme, universities supplying specialised personnel and industrial companies capable of participating in construction and maintenance. The period between 2026 and 2032 is consequently part of the preparation schedule, covering the development of capabilities ahead of potential technology selection and contracting.
