Enhancing Nuclear Safety: Protecting Nuclear Power Plants Against Military Threats

A joint analysis by South African and Ukrainian experts of the Zaporizhzhia Nuclear Power Plant case to strengthen nuclear safety across African states

This document has been developed through a partnership between South African and Ukrainian experts from the South African Institute of International Affairs, Ilko Kucheriv Democratic Initiatives Foundation, the Ukrainian Association of South Africa and Dixi Group. It draws upon the policy brief “Nuclear Safety During the Military Invasion: A Case Study of the Ukraine–Russia Conflict,” which was presented at the 2024 African Union Mid-Year Coordination Meeting in Accra. Elements of that brief have been refined, expanded, and incorporated into the present analysis.

The African Union recognises nuclear energy as an important factor for the industrialisation and socio-economic development of the continent. Over 16 African countries are progressing with nuclear programmes at varying stages. As a high-risk technology, nuclear energy requires robust safety and security regulations to ensure its safe and effective operation. Rising geopolitical instability is undermining nuclear safety frameworks, requiring immediate and coordinated action to safeguard the African continent.

In 2022, Russia’s invasion of Ukraine resulted in the first military occupation of an operational nuclear power plant, exposing gaps in existing norms and setting a dangerous precedent that lowers the threshold for nuclear safety violations.

Africa has a proud track record of leadership in non-proliferation, nuclear safety, and the peaceful use of nuclear energy as established by the African Nuclear-Weapon-Free Zone Treaty (Pelindaba Treaty). Article 11 of this Treaty prohibits armed attacks on nuclear installations.

This document analyses the occupation of, and attacks on the Zaporizhzhia Nuclear Power Plant (ZNPP) — Europe’s largest nuclear facility and one of the world’s ten largest nuclear power plants, consisting of six reactors with a total capacity of 6,000 MW —under ongoing occupation since March 2022. 

This analysis suggests that the provisions of the Pelindaba Treaty may not fully address the complex risks posed to nuclear safety and security in contemporary armed conflicts. Based on this assessment, the document identifies key areas where regulation should be strengthened to enhance nuclear safety and security across the African continent:

• developing internationally binding regulations, supported by enforcement mechanisms, to effectively prevent the military occupation of, or armed attacks on, nuclear facilities;
• expanding the IAEA’s mandate to monitor and ensure nuclear safety and security;
• safeguarding nuclear-related infrastructure that may not be formally classified as nuclear installations;
• upholding and protecting labour and human rights, ensuring physical safety and psychological well-being of nuclear personnel and operators, particularly in the case of occupation;
• strengthening corporate responsibility and accountability frameworks* for nuclear operating companies to ensure compliance with safety, security, and human rights standards across jurisdictions.

Governments bear the critical responsibility to strengthen existing regulations; until they do, nuclear safety and security remain at risk worldwide. This document urgently calls on all governments and other stakeholders to take immediate, concrete action to prevent further threats to nuclear safety and security across the globe.