IAEA maps out 5-stage plan for first nuclear plant: Which two ASEAN countries lead?

Southeast Asia countries consider nuclear power as tech growth fuels low-carbon energy demand. (Photo: Wikipedia Commons)

Data centers and other technology-driven growth are boosting demand for low-carbon energy, and nuclear power has emerged as one of the options under consideration across Southeast Asia. But building a large nuclear power plant typically takes at least a decade from planning to operation.

To help regional governments assess this pathway, the International Energy Agency (IEA) hosted the second session of its Southeast Asia Nuclear Dialogue series on Aug. 14, inviting John Haddad, Head of Nuclear Infrastructure Development at the International Atomic Energy Agency (IAEA), to share the conditions and processes involved in developing nuclear power plants.

Vietnam, Philippines lead ASEAN nuclear plans

According to IAEA data, 23 countries worldwide have decided to pursue their first nuclear power plants. 

Within ASEAN, Vietnam and the Philippines are the most advanced, currently in the preparation stage (Phase 2). Others—including Thailand, Indonesia, and Malaysia—remain in the initial consideration phase (Phase 1).

The IAEA divides nuclear power development into five stages:

1. Pre-phase (before nuclear power is on the agenda)

2. Consideration (Phase 1)

3. Preparation (Phase 2)

4. Implementation (Phase 3)

5. Expansion (for countries adding capacity).

Each stage has specific milestones. Haddad noted that the consideration stage typically takes 2 to 3 years, preparation 3 to 5 years, and implementation 7 to 8 years.

IAEA divides nuclear power development into five major stages. (Source: IAEA)

IAEA outlines 19 critical issues

Given the high cost and complexity of nuclear plants, as well as long-term waste management needs, the IAEA has developed the Milestones Approach to help countries build their first nuclear power facility step by step. 

The framework identifies 19 infrastructure issues that governments must address, ranging from technical to regulatory and human capacity requirements.

Importantly, “infrastructure” goes beyond physical assets like roads and bridges, Haddad stressed, encompassing regulations, governance frameworks, and workforce development. Governments beginning to consider nuclear power must first form a Nuclear Energy Programme Implementing Organization (NEPIO) to produce a comprehensive technical report on the 19 issues. Only after confirming alignment with national needs can a country move forward to Phase 2.

IAEA outlines 19 key issues for countries building their first nuclear power plant. (Image: IAEA)

Currently, most Southeast Asian countries remain in Phase 1 and have yet to establish a science-based national commitment. Quoting from the Milestones Approach, Haddad underlined that nuclear decisions rest on both technical and political foundations:

“The government should adopt a clear statement, which reflects broad political support, of its intent to develop a nuclear power programme, and it should communicate that intent locally, nationally, regionally and internationally.”

Financing and public opinion considered major hurdles

Southeast Asian governments have often shifted positions on nuclear power, typically for political or economic reasons. Under climate pressure, nuclear power is seen as an attractive low-carbon option that combines emissions reduction with stable power supply, making it appealing to governments seeking carbon competitiveness.

Regardless of shifts in political stance, Haddad stressed that decisions must be grounded in transparent, fact-based information and that stakeholders must trust that current decisions are the right ones.

Among the IAEA’s 19 infrastructure issues, financing and stakeholder engagement are the most common challenges. The latter is particularly sensitive, as public opposition cannot be easily or quickly overcome. 

By development stage, Haddad described Phase 2 as the most difficult, given its complex preparatory requirements such as establishing institutions and governance frameworks. Still, actual timelines will vary depending on each country’s pace.

Asked which ASEAN nation might realistically be first to build a nuclear power plant, Haddad pointed to Vietnam, which plans to undergo a comprehensive Integrated Nuclear Infrastructure Review (INIR) in 2026, signaling clear progress beyond Phase 1.

On the role of small modular reactors (SMRs), Haddad noted their smaller scale and lower cost compared with large plants, as well as faster construction and licensing timelines. Given that some Southeast Asian grids may be unable to handle large nuclear plants, SMRs could prove a more viable solution for the region’s future.

John Haddad, Head of Nuclear Infrastructure Development at the IAEA, shares insights on nuclear power development worldwide. (Image: IEA's Southeast Asia Nuclear Dialogue forum)

Source: IAEA