Nuclear Power Programme Development and IAEA INIR Mission Preparation for Nuclear Newcomer Countries

Introducing nuclear power into a country's energy mix requires years of preparation, coordination across government institutions, and investment in national capabilities. Countries must establish the policies, organisations, workforce, industrial capacity, and financial arrangements necessary to support nuclear power throughout its lifecycle.

The International Atomic Energy Agency (IAEA) provides a structured framework for this process through its Milestones Approach, which identifies 19 nuclear infrastructure issues that countries need to address when developing a nuclear power programme.

At Helixos, we support nuclear newcomer countries with nuclear infrastructure development, national nuclear power strategies, and INIR mission preparation, combining nuclear engineering expertise with economic analysis, programme planning, and stakeholder engagement. Our experience includes supporting governments with advising on national nuclear policy, energy and economic modeling, stakeholder engagement, workforce development, industrial capabilities, and nuclear project development across multiple countries.

Understanding the IAEA Milestones Approach and Preparing for INIR Missions

The IAEA Milestones Approach divides nuclear power infrastructure development into three phases, each ending with a milestone:

Milestone 1

Ready to make a knowledgeable commitment to a nuclear power programme.

Milestone 2

Ready to invite bids or negotiate a contract for the first nuclear power plant.

Milestone 3

Ready to operate the first nuclear power plant.

Countries can request Integrated Nuclear Infrastructure Review (INIR) missions from the IAEA to evaluate their infrastructure development against the relevant milestone conditions. These reviews assess progress across all 19 infrastructure issues, drawing on national self-evaluations, supporting documentation, and discussions with relevant stakeholders.

Helixos can support governments and Nuclear Energy Programme Implementing Organisations (NEPIOs) throughout this process by conducting infrastructure gap assessments, coordinating inputs from responsible institutions, preparing National Self-Evaluation Reports, and developing action plans to address identified gaps.

Supporting Nuclear Infrastructure Development

Helixos provides advisory services across nine of the IAEA's 19 nuclear infrastructure issues. Our capabilities address the strategic, economic, organisational, and technical considerations that influence a country's preparedness to introduce nuclear power.

IAEA infrastructure issue	How Helixos can support
National position	Assess nuclear energy's potential contribution to national energy security, economic development, and climate objectives. Develop policy analysis, technology assessments, national strategies, and implementation roadmaps to support an informed government decision.
Management	Support NEPIOs and other programme organisations with governance arrangements, strategic planning, organisational responsibilities, management processes, programme roadmaps, and progress monitoring.
Funding and financing	Conduct techno-economic modelling, cost assessments, and financial scenario analysis to evaluate nuclear deployment pathways, investment requirements, project economics, and potential financing approaches.
Human resource development	Assess national workforce capabilities and future requirements across programme phases. Model demand for technical, managerial, and specialist personnel, identify competency gaps, and develop workforce and training strategies.
Stakeholder engagement	Map and engage government, industry, academic, community, and other stakeholders. Develop public information strategies, consultation programmes, communications materials, and training for nuclear programme representatives.
Nuclear fuel cycle	Assess nuclear fuel supply chains, fuel technology options, sourcing dependencies, and strategic considerations for front-end fuel services and spent fuel management.
Radioactive waste management	Provide technical assessments of waste management options, infrastructure requirements, waste classification, processing and storage approaches, lifecycle costs, and regulatory documentation.
Industrial involvement	Map domestic industrial capabilities, assess potential participation in nuclear construction and operations, identify supply chain gaps, and develop strategies for supplier qualification and capability development.
Procurement	Support technology evaluation, vendor assessments, procurement strategies, technical and commercial requirements, and project contracting approaches, drawing on wider specialist legal and procurement expertise where required.

These services can be delivered as individual technical studies or coordinated work programmes aligned with a country's progress through the IAEA Milestones Approach.

Nuclear Power Economic, Workforce, and Industrial Readiness Assessments

For countries evaluating nuclear power, understanding the potential domestic economic benefits is an important input to the national position.

Helixos recently undertook a nuclear energy economic impact assessment for a nuclear newcomer country in Europe, evaluating deployment scenarios involving a large Generation III+ reactor and a small modular reactor (SMR).

We developed an economic model using national economic data and nuclear project benchmarks to estimate potential GDP contributions, employment, tax revenues, and domestic value capture. Our work also mapped local engineering and industrial capabilities and modelled workforce requirements across construction and operation.

The analysis helped establish where domestic industries could participate, which capabilities would require development, and how a national nuclear programme could contribute to broader economic objectives.

Nuclear Programme Management and Stakeholder Engagement

Nuclear infrastructure development involves numerous organisations with different responsibilities, timelines, and technical requirements. Effective coordination becomes particularly important as countries transition from evaluating nuclear power to preparing for procurement and implementation.

Helixos has developed national technology roadmaps and programme management frameworks for government organisations, drawing on extensive stakeholder consultation, capability assessments, and implementation planning.

We also support national nuclear energy policy discussions in a country where commercial nuclear power has yet to be introduced. This work includes engagement with policymakers, industry, and civil society, alongside communications addressing nuclear safety, economics, technology options, and integration into the energy system. We are experts in nuclear communications and even provide communications training to empower local spokespeople. These capabilities help governments establish coherent programme priorities and maintain informed engagement throughout the development process.

Nuclear Workforce Development and Human Resource Planning

Workforce development is another critical consideration for nuclear newcomer countries, particularly given the long lead times required to develop specialised skills. Helixos has experience in national nuclear workforce planning, including a project in Canada where we reviewed and stress-tested a labour supply and demand model across different nuclear deployment scenarios.

Helixos assessed projected workforce requirements for skilled trades, engineers, technicians, operators, and project managers, identifying potential skills gaps across the nuclear lifecycle. This analysis informed a national workforce strategy outlining actions for government and industry to strengthen education and training pathways, address anticipated shortages, and align workforce development with future nuclear deployment plans.

Developing a National Nuclear Power Programme with Helixos

The IAEA Milestones Approach recognises that introducing nuclear power requires long-term national commitment. Preparing for an INIR mission provides an opportunity to assess institutional readiness, identify infrastructure gaps, and establish priorities for the next programme phase.

Helixos works with governments, NEPIOs, utilities, and other nuclear organisations to translate these requirements into technical studies, national strategies, infrastructure assessments, and actionable implementation plans. Our nuclear engineering, economic modelling, strategy, and communications expertise allows us to support countries from their initial consideration of nuclear power through programme planning and preparation for deployment, including pathways involving SMRs.

If your country is evaluating nuclear power, developing its national nuclear infrastructure, or preparing for an IAEA INIR mission, contact Helixos to discuss how our team can support your programme.

P.S. We also have a framework on introducing fusion energy, check out our Plasma Power Framework.