Serbia has formally entered the preparatory phase of a civilian nuclear-energy programme through a cooperation agreement with France’s EDF and the French Development Agency, although the government does not expect a first reactor to enter service before 2040.
The agreement is focused on institutional capacity, technical studies, human resources and nuclear-safety culture rather than an immediate reactor procurement. This distinction is important because Serbia must first create the regulatory and professional system needed to evaluate technologies, select potential sites and manage a programme extending across several decades.
Mining and Energy Minister Dubravka Đedović said EDF would support three additional studies after completing a preliminary technical assessment in 2025. Another 14 studies are expected to be prepared with other international partners, with the full package targeted for completion by mid-2027.
The studies should provide the basis for future decisions on reactor size, technology, location, grid integration, financing and waste management. They will also need to assess whether Serbia should pursue a conventional large reactor, small modular reactors or participation in a regional nuclear project.
EDF brings experience as the operator of more than 50 reactors in France, but Serbia will need to retain technology-neutral decision-making during the early phase. Committing too early to one vendor or reactor design could weaken procurement competition and create long-term dependence before the economic case is complete.
The French Development Agency is providing a €500,000 grant through its FEXTE facility. The financing will support institutional strengthening, programme management, technical education and the development of nuclear-safety capabilities in accordance with International Atomic Energy Agency recommendations.
The work will cover Phase I and part of Phase II of Serbia’s nuclear programme. The Nuclear Energy Programme Implementing Organization will cooperate with EDF to build the expertise required to coordinate government institutions, regulators, universities, grid operators and potential project partners.
Human capital is likely to be the most persistent constraint. Serbia must train engineers, regulators, safety specialists, project managers and technical personnel well before a plant can be licensed or constructed. A credible programme will also require an independent regulator with sufficient authority, stable long-term funding and institutional separation from the project developer.
Financing will eventually be decisive. A large nuclear plant could require capital expenditure well above €10bn, depending on technology, local infrastructure, financing terms and construction duration. Delays of several years could materially increase interest during construction and electricity costs.
The agreement with France does not amount to a reactor order. It establishes the institutional machinery needed for Serbia to determine whether nuclear power can become a technically credible, financially manageable and grid-compatible part of its post-coal electricity system.
