Qatar’s Policy Outlook on Nuclear Energy’s Role in Decarbonization

Introduction

Nuclear energy is at the heart of the ongoing debate about addressing the twin crises of energy security and climate change. As countries strive to reduce greenhouse gas emissions and transition to net-zero economies, nuclear energy is often considered a low-carbon energy source that could complement renewable technologies in decarbonizing electricity generation. Its ability to provide stable, large-scale energy production is seen by some as critical for ensuring a reliable power supply while reducing dependence on fossil fuels.¹

At COP 28, held in December 2023 in Dubai, nuclear energy was officially recognized for the first time in the final declaration as a component in accelerating zero- and low-emission technologies. Additionally, the joint declaration on tripling nuclear energy capacity by 2050 was launched.² Over 20 countries have recognized the essential role that nuclear energy will have in achieving global net-zero emissions, committing to work collaboratively toward this goal and inviting international financial institutions to encourage the inclusion of nuclear energy in national energy portfolios.³

However, while many governments have recently increased their ambitions and commitments to reach net-zero emissions, the discussion around nuclear energy comes with its own set of challenges. Issues such as radioactive waste management, nuclear safety, high costs of investment, public support and geostrategic calculations make nuclear energy a complex and multifaceted option within the broader sustainable energy transition.

As of December 2024, nuclear energy accounts for only 9% of global electricity generation, with 440 reactors in operation worldwide.⁴ An additional 65 reactors are under construction, around 90 are planned, and over 300 have been proposed.⁵ Whether this growing momentum, along with the argument that achieving net zero emissions globally will be more difficult without nuclear energy,⁶ will translate into widespread adoption remains uncertain.

Although Qatar currently has no plans to incorporate nuclear energy into its energy strategy, it would be incomplete to exclude nuclear energy options from discussions about alternative paths to decarbonization. Given the heated debates in the international arena surrounding nuclear energy, Qatar’s perspective on the role of nuclear energy in addressing climate goals is worth considering as part of the broader dialogue on sustainable energy transitions.

Qatar’s Approach to Nuclear Security and Safety

An investigation of nuclear energy’s potential role in Qatar’s decarbonization path should start with Qatar’s position in nuclear security and nuclear safety. When it comes to references of the term “nuclear” in the official discourse, Qatar emerges as a prominent promoter of nuclear security. Qatar’s official stance emphasizes nuclear security as a key component in ensuring international peace and security. In different international platforms, Qatar has rightly expressed concerns over global geostrategic tensions, advocating for progress toward the establishment of a nuclear-weapon-free zone in the Middle East, the fulfillment of nuclear disarmament obligations under the Treaty on the Non-Proliferation of Nuclear Weapons (NPT), strengthened support and resources for the International Atomic Energy Agency (IAEA), the mitigation of cyberattack risks, the enhancement of nuclear security systems, and the promotion of a robust security culture.⁷

Qatar holds a similar position on nuclear safety, consistently emphasizing the importance of robust safeguards, safety procedures, and close collaboration with the IAEA. As a matter of fact, Qatar has often expressed caution regarding large-scale civilian nuclear programs in the region, particularly those of the neighboring UAE and Saudi Arabia. On March 20, 2019, Qatar publicly stated that these programs pose significant risks to regional stability and the environment, urging the International Atomic Energy Agency (IAEA) to establish a regional framework for nuclear safety. In a formal letter to IAEA Director General Yukiya Amano, Qatar’s Ministry of Foreign Affairs stated: “Qatar believes that the lack of any international cooperation with neighboring states regarding disaster planning, health and safety and the protection of the environment pose a serious threat to the stability of the region and its environment.”⁸ It is worth noting that this statement was made against the backdrop of the ongoing Gulf diplomatic crisis, in parallel with the prevailing regional context.

Building on this statement, Qatar has continued to call countries with nuclear facilities (especially in the region) to join international efforts and measures on nuclear safety,⁹ which has become an increasingly salient issue due to the rise of new risks such as cyber-attacks (as well as traditional risks like harmful radioactive materials), underlining the long-term and transboundary impacts of nuclear accidents.¹⁰ For its part, Qatar is actively working to reinforce its national nuclear legal framework, built on the foundation of the Radiation Protection Law No. 31 of 2002 and the National System for the Account and Control of Nuclear Material Law No. 3 of 2018, with the support of IAEA Legislative Assistance Mission.¹¹

Qatar’s Engagement in Civilian Nuclear Technology

Qatar has made concerted efforts to expand national capabilities in peaceful applications of nuclear technology, specifically in areas including food security, agriculture, health, water resources management and water desalination. Qatar’s underlying aim is to utilize nuclear technology to mitigate the impacts of climate change and achieve United Nations Sustainable Development Goals (SDGs).¹² To this end, the country has been in close cooperation with IAEA for the transfer of technology and knowledge through multiple technical cooperation projects.¹³

In the realm of energy, despite its reservations about large scale nuclear energy programs, recent developments reveal that Qatar is closely monitoring global trends on emerging nuclear technologies. On December 20, 2021, Qatar Investment Authority (QIA), the sovereign wealth fund for the state of Qatar, concluded an agreement to invest USD 112 million (GBP 85 million) in the small modular reactor (SMR) project supported by the British government.¹⁴ With this investment, QIA secured 10 percent shareholding in Rolls-Royce SMR, joining other shareholders including Rolls-Royce, BNF Resources UK and Constellation.¹⁵ Accordingly, Qatar acknowledges the use of SMRs as alternative energy sources for decarbonization, provided that safety procedures are followed, and the risks are carefully managed.¹⁶

This is a significant development, especially as momentum behind SMRs continues to grow. SMRs represent an effort by the nuclear industry to enhance its contribution to global decarbonization initiatives, while trying to mitigate the difficulties and risks associated with large-scale, conventional nuclear power plants. With capacities of up to 300 Megawatts electric (MWe), SMRs leverage modular technology, allowing for factory-based fabrication. This makes them more manageable from an investment standpoint compared to traditional, large-scale nuclear plants. Designed to be cheaper and quicker to deploy, with shorter market entry times, SMRs promise flexibility, economic viability, and enhanced safety. However, challenges remain, particularly in the need for developers to gain manufacturing experience to achieve cost reductions. Moreover, SMRs are not yet commercially mature, and further advancements are required before their full potential can be realized.¹⁷

While investing in this emerging technology does not necessarily signal immediate plans for Qatar to incorporate SMRs into its own domestic energy systems, acquiring shares in Rolls-Royce SMR is a strategic move, enabling Qatar to explore alternative decarbonization technologies on a global scale. This is particularly relevant as Rolls-Royce SMR gains increasing prominence. For instance, on September 19, 2024, the Czech Republic selected the company, after the assessment of seven potential suppliers, to work with its SMR program.[i] A week later, it was announced that Rolls-Royce SMR was shortlisted alongside three international firms in the UK Government’s competition to select and contract providers for the country’s SMR program.¹⁸ A week later, it was announced that Rolls-Royce SMR was shortlisted alongside three international firms in the UK Government’s competition to select and contract providers for the country’s SMR program.¹⁹ Additionally, SMRs are being extensively investigated for their potential in seawater desalination, making them particularly relevant for the Gulf countries, where water supplies rely on energy-intensive, fossil fuel-based desalination plants.

Policy Implications for Qatar

For energy exporters like Qatar, the path to decarbonization is a multi-level chess game, played simultaneously on national, regional and global stages. At the global arena, Qatar is a key player in the natural gas markets, a role that presents both opportunities and vulnerabilities. While natural gas remains crucial during the transition to a low-carbon future, maintaining stable and uninterrupted supplies will require substantial investments in transportation and distribution infrastructure. This, however, raises the risk of technology lock-in, leading to a dilemma between investing for the immediate need and achieving the long-term goal of sustainability.²⁰ Qatar’s global energy role is deeply intertwined with its national identity and interests, as the country has long relied on hydrocarbon revenues, not only for its development but also to ensure that its national interest in its status as an energy leader is sustained. At the national level, Qatar faces the challenge of decarbonizing both its energy production and consumption, making investments in alternative low carbon resources a priority, particularly for energy-intensive sectors, such as water desalination. At the regional level, the Gulf Cooperation Council (GCC) countries, including Qatar, have been pursuing economic diversification, striving to transition toward sustainable economies, aiming for a comprehensive transformation that redefines their role in the global system.²¹ Rather than being seen solely as suppliers of crude and refined hydrocarbons, they aspire to become active, dynamic, and adaptable players in sustainable development.

Accordingly, while navigating the interplay between global, regional and national levels with regards to their respective needs and challenges, Qatar must also keep an eye on the regional dynamics, ensuring that its decarbonization strategies consider the progress of its regional counterparts in sustainability. Overall, decarbonization for Qatar is much more than diversification of its energy portfolio, but also a matter of safeguarding its national interests and geopolitical strategies. Exploring the potential role of nuclear energy in Qatar’s decarbonization path cannot be detached from this context, particularly as neighboring Gulf countries like Saudi Arabia and the United Arab Emirates (UAE) advance their own nuclear programs. Saudi Arabia for example, has proposed the development of two nuclear reactors, while the UAE recently completed the fourth unit of the Barakah Nuclear Energy Plant, which is set to generate 25% of the country’s electricity needs.²² Considering this landscape, one of the most important policy implications for Qatar in the realm of nuclear energy is to continue advocating for the enhancement of nuclear safety culture, increased transparency and the consolidation of credible and independent regulatory bodies to ensure robust nuclear safety measures.

Overall, Qatar’s policy options for advancing its decarbonization efforts should include prioritizing investments in new technologies that support research on low-carbon electricity generation. This creates a window of opportunity for Qatar to join and support research on SMRs. Additionally, fostering regional dialogue to enhance increased cooperation through the exchange of experiences, policies, and expertise, will remain essential for building a shared agenda in the Gulf for nuclear security and safety. Qatar can also encourage the creation of to facilitate transparent and inclusive policy debates or to create joint technical research teams on critical issues (such as radioactive waste management) to deepen regional dialogue on the civilian use of nuclear technologies, based on shared challenges, concerns and opportunities.

Finally, investing in human capital by developing local technical expertise and cultivating experienced policymakers will be critical for driving effective and innovative nuclear energy strategies. There are already some recent examples of how Qatar invests in boosting human capital for the advancement of science on nuclear technology. In March 2024, Qatar co-organized an event on empowering and encouraging women to join nuclear-related fields, which took place on the sidelines of  the 68th annual Commission on the Status of Women (CSW68).²³ Similarly, in August 2024, along with 14 other countries, Qatar participated in the first International Nuclear Science Olympiad (INSO), which was held in the Philippines and aimed to attract the next generation of young scientists and engineers to the nuclear field. Out of 55 students, the winners in the silver and bronze categories notably included students from Qatar.²⁴

Conclusion

Decisions pertaining to the deployment of nuclear energy in complex and turbulent environments such as the Middle East are particularly challenging as they are complicated by considerations that transcend mere technological challenges. Furthermore, investing in nuclear energy generation is a strategic and political decision that requires strong regulations and safety measures across multiple domains.²⁵ Under current policies and trends, it would be unlikely for Qatar to pursue the construction of a conventional large nuclear power plant in its territory. However, recent developments indicate the country’s openness to international collaborations for advancing the civilian use of nuclear technology for sustainable development, in areas including food, health, and water. Within this framework, it is strategically viable for Qatar to continue exploring and investing in emerging technological advancements, including SMRs. This approach can offer Qatar a potential strategic stake in the development of newer, safer and more advanced nuclear energy technologies and provide an opportunity to explore alternative pathways for potentially decarbonizing its own portfolio in the future, particularly for seawater desalination. That said, the nuclear energy industry is highly vulnerable to external shocks, including nuclear accidents, political and economic crises and regional conflicts, which could critically impact decision makers’ choices. Consequently, the geopolitical context and dynamic policy landscape in the region will play a critical role in shaping Qatar’s approach to nuclear energy.

Endnote

¹ International Energy Agency (IEA), Nuclear Power and Secure Energy Transitions: From today’s challenges to tomorrow’s clean energy systems, Report, (Paris, France: International Energy Agency, June, 2022), https://www.iea.org/reports/nuclear-power-and-secure-energy-transitions.

² “Countries launch joint declaration to triple nuclear energy capacity by 2050 at COP28,” OECD Nuclear Energy Agency (NEA), December 2, 2023, https://www.oecd-nea.org/jcms/pl_88702/countries-launch-joint-declaration-to-triple-nuclear-energy-capacity-by-2050-at-cop28.

³ “Nuclear Power Finally Has its Moment at UN Climate Summit,” International Atomic Energy Agency (IAEA), December 6, 2023, https://www.iaea.org/newscenter/news/nuclear-power-finally-has-its-moment-at-un-climate-summit.

⁴ “Reactor Database,” World Nuclear Association, accessed December 7, 2024, https://world-nuclear.org/nuclear-reactor-database/summary. Archived page can be accessed on https://web.archive.org/web/20241207215938/https://world-nuclear.org/nuclear-reactor-database/summary.

⁵ “Plans For New Reactors Worldwide,” World Nuclear Association, accessed December 15, 2024, https://wna.origindigital.co/information-library/current-and-future-generation/plans-for-new-reactors-worldwide. Archived page can be accessed on https://web.archive.org/web/20241215153433/https://wna.origindigital.co/information-library/current-and-future-generation/plans-for-new-reactors-worldwide.

⁶ IEA, Nuclear Power and Secure Energy Transitions,35.

⁷ “Qatar calls for enhanced nuclear security measures,” Gulf Times, May 23, 2024, https://www.gulf-times.com/article/683139/qatar/qatar-calls-for-enhanced-nuclear-security-measures.

⁸ “Qatar: UAE Nuclear Plant Threat to Gulf Stability, Environment,” Aljazeera, March 20, 2019, https://www.aljazeera.com/news/2019/3/20/qatar-uae-nuclear-plant-threat-to-gulf-stability-environment.

⁹ “Qatar Urges All Countries With Nuclear Facilities to Swiftly Join International Agreements on Nuclear Safety,” Qatari Ministry of Foreign Affairs, September 10, 2024, https://mofa.gov.qa/en/qatar/latest-articles/latest-news/details/2024/09/11/qatar-urges-all-countries-with-nuclear-facilities-to-swiftly-join-international-agreements-on-nuclear-safety

¹⁰ “Qatar Underscores Significance of Safety, Security from Nuclear Incidents Engendered by Current Global Geostrategic Tensions,” Qatari Ministry of Foreign Affairs, March 5, 2024, https://mofa.gov.qa/en/qatar/latest-articles/latest-news/details/2024/03/05/qatar-underscores-significance-of-safety–security-from-nuclear-incidents-engendered-by-current-global-geostrategic-tensions.

¹¹ “Strengthening the National Nuclear Legal Framework of the State of Qatar,” IAEA, May 22, 2024, https://www.iaea.org/newscenter/news/strengthening-the-national-nuclear-legal-framework-of-the-state-of-qatar.

¹²“Qatar Praises IAEA in the Transfer of Nuclear Technology for Peaceful Uses,” Qatari Ministry of Foreign Affairs, March 8, 2024, https://mofa.gov.qa/en/qatar/latest-articles/latest-news/details/2024/03/08/qatar-praises-iaea-in-the-transfer-of-nuclear-technology-for-peaceful-uses.

¹³“Qatar Values the Efforts of the IAEA in Transferring Nuclear Technology and Knowledge to Developing Countries,” Qatari Ministry of Foreign Affairs, September 10, 2024, https://mofa.gov.qa/en/qatar/latest-articles/latest-news/details/2024/09/10/qatar-values-the-efforts-of-the-iaea-in-transferring-nuclear-technology-and-knowledge-to-developing-countries.

¹⁴ “Qatar backs UK’s Rolls-Royce in small nuclear power project,” Reuters, December 20, 2021,  https://www.reuters.com/markets/europe/qatar-backs-uks-rolls-royce-small-nuclear-power-project-2021-12-20/.

¹⁵ Qatar backs UK’s Rolls-Royce in small nuclear power project.”

¹⁶ “Qatar calls for halt to weaponisation of energy in conflicts,” Gulf Times,  October 28, 2022, https://www.gulf-times.com/story/727708/qatar-calls-for-halt-to-weaponisation-of-energy-in-conflicts.

¹⁷ Bassam Fattouh, Sara Vakhshouri, and Jim Henderson, eds., Nuclear Energy in the Global Energy Landscape: Advancing Sustainability and Ensuring Energy Security? (Oxford, United Kingdom: The Oxford Institute for Energy Studies, February, 2024).

¹⁸“Czech Republic selects Rolls-Royce SMR for small reactors project,” World Nuclear News, September 19, 2024, https://www.world-nuclear-news.org/articles/czech-republic-selects-rolls-royce-smr-for-small-reactors-project.

¹⁹ “GE Hitachi, Holtec, Rolls-Royce SMR and Westinghouse enter UK SMR negotiations,” World Nuclear News, September 26, 2024, https://www.world-nuclear-news.org/articles/ge-hitachi-holtec-rolls-royce-smr-and-westinghouse-enter-uk-smr-negotiations

²⁰ Duygu Sever, “Natural Gas and Energy Security,” in The Palgrave Handbook of Natural Gas and Global Energy Transitions, eds. Damilola S. Olawuyi and Eduardo G. Pereira  (Palgrave Macmillan, 2022), 97-120, https://doi.org/10.1007/978-3-030-91566-7_4.

²¹ Duygu Sever, Evren Tok, and Cristina D’Alessandro, “Global environmental governance and the GCC: Setting the agenda for climate change and energy security,” in Global Governance and Muslim Organizations, eds. Pal L.A. and M. Evren Tok, International Political Economy Series (Palgrave Macmillan, Cham, 2019), 197-227, https://doi.org/10.1007/978-3-319-92561-5_8.

^{22 “UAE Celebrates Historic Milestone as Unit 4 of the Barakah Plant Commences Commercial Operation: Delivering Full-fleet Operations,” Emirates Nuclear Energy Company (ENEC), September 5, 2024, https://www.enec.gov.ae/news/latest-news/uae-celebrates-historic-milestone-as-unit-4-of-the-barakah-plant-commences-commercial-operation/}

²³“Qatar co-organises event on empowering women in nuclear fields,” Doha News, March 17, 2024, https://dohanews.co/qatar-co-organises-event-on-empowering-women-in-nuclear-fields/.

²⁴“First Ever International Nuclear Science Olympiad Held in Run Up to International Youth Day,” IAEA, August 12, 2024, https://www.iaea.org/newscenter/news/first-ever-international-nuclear-science-olympiad-held-in-run-up-to-international-youth-day .

²⁵ Duygu Sever, Nuclear Energy in Turkey: Quo Vadis?, Analysis Paper, (Istanbul, Turkey: Global Relations Forum, April, 2020), 18-20, https://www.gif.org.tr/files/NuclearEnergy.pdf