By Sellita
Executive Summary: It is paradoxical for a developing country like Indonesia to have nuclear power – prompting critical inquiry into the alignment of such advanced technological adoption with its developmental objectives, governance structures, and institutional readiness. The dilemma lies in determining whether Indonesia’s pursuit of nuclear energy is primarily aimed at advancing its clean energy transition or whether it is strategically motivated by geopolitical considerations. However, Indonesia faces several challenges in developing its nuclear capacity as an energy source. On the other hand, being supported by countries such as Russia presents Indonesia with an iconic opportunity to become a nuclear power in the region.
On December 18, 1978, Indonesia ratified the Treaty on the Non-Proliferation of Nuclear Weapons, which it had signed in 1970. This indicates that its nuclear program is solely focused on building reactors for peaceful purposes. Despite being a signatory to the Treaty on the Non-Proliferation of Nuclear Weapons, Indonesia has not yet established a functional nuclear power plant. This is quite paradoxical, considering that Indonesia is one of the major contributors to CO2 emissions in Southeast Asia, particularly in the energy sector. The Indonesian government has signaled a serious commitment to achieving net-zero emissions in 2060 by using cleaner energy sources. Nuclear energy is potentially a more viable and sustainable solution for Indonesia in the long-term energy demands. This remains a question: is Indonesia adequately prepared to embark on the path toward becoming a nuclear power, considering the internal and external challenges?
In early 2025, Indonesia announced a plan to build a 35-gigawatt nuclear power plant by 2040, using Small Modular Reactors (SMRs) to enhance safety features and flexible deployment. Integrating nuclear energy into Indonesia’s broader renewable energy strategy signifies a critical move by the government to diversify the national energy mix and mitigate long-standing dependence on fossil fuel-based sources. Nuclear energy offers a low-carbon and stable energy source to supply green energy, indicating long-term sustainability. BRIN reported, according to the energy transition roadmap with renewable energy integrated in four stages of the National Long-Term Development Plan (RPJPN) 2025-2045, Indonesia aims to build and operate its first commercial nuclear power plant with a capacity of 250 megawatts in the second phase or commissioning phase, between 2030 and 2034, specifically in 2032.
Indonesia is experiencing a significant and accelerating increase in energy demand. Indonesia continues to promote the use of nuclear energy as part of the transition to clean energy that supports national energy needs. Energy and Mineral Resources Minister Bahlil Lahadalia stated that several potential investors, such as Russia and Canada, are interested in nuclear energy development in Indonesia. Following the bilateral negotiations on June 19, 2025, Vladimir Putin and Prabowo Subianto signed the Declaration of Strategic Partnership between the Russian Federation and the Republic of Indonesia, which includes provisions to enhance energy cooperation. As part of this agreement, Russia expresses its readiness to support the development of nuclear energy in Indonesia. Russia’s experience in building modular nuclear power plants (PLTN modular) provides a valuable reference for Indonesia as it explores similar technology pathways. Rosatom’s nuclear technologies have demonstrated operational reliability and adaptability through successful deployment in diverse environmental and regional settings. Such developments support a solution for Indonesia’s renewable energy implementation, with a projected contribution of 40–54 GW toward the national energy capacity target of 400 GW.
On a small scale, in 2015, Indonesia, through the Thorium Consortium, signed a cooperation agreement with Martingale of the United States – comprising state-owned companies PT Industri Nuklir Indonesia (INUKI), PT PLN, and PT Pertamina – to build the ThorCon thorium molten salt reactor to generate electricity. This collaboration was followed by an agreement with the Indonesian Nuclear Energy Regulatory Agency to begin safety, security, and safeguards consultations in preparation for licensing in 2023. In March 2025, PT ThorCon Power Indonesia submitted documents to regulators to initiate the licensing process. Kelasa Island in Central Bangka has been identified as a potential site, with operations targeted to commence by 2032.
Despite providing its significant advantages – most notably a stable baseload electricity supply without the carbon footprint of fossil fuels, nuclear power in Indonesia faces a range of challenges, such as technical and socio-political constraints. Some Indonesian experts have argued that the development of nuclear power reflects an overambitious policy trajectory, potentially overlooking the country’s current capacity in technology and institutional readiness. This is supported by some logical risks. First, location – as a country located on the seismically active “Ring of Fire”, considering volcanic disasters and earthquakes, elevates serious safety considerations for the siting of nuclear facilities. Second, institutional and bureaucratic limitations are assumed to be impacting the implementation process. Attracting investors is a matter of their perception of legal uncertainty in Indonesia. Indonesia’s nuclear energy policy is still governed by Law No. 10 of 1997, which has yet to be modified to reflect current technological, environmental, and geopolitical changes. In addition, Indonesia’s Corruption Perceptions Index was 37 out of 100 in 2024, underscoring persistent internal governance challenges that further complicate the development of nuclear energy initiatives. If the nuclear program is implemented under these conditions, it is assumed to face significant challenges related to the development of a robust safety culture.
Indonesia is widely recognized to have a huge potential for renewable energy given its abundance of natural resources and geographic diversity. The development of a nuclear power plant may serve as a strategic component in advancing the long-term objective, particularly in the areas of energy security and environmental sustainability. As a maritime nation comprising 17,374 islands, nuclear development should turn into a pragmatic and significant endeavor, rather than a mere aspirational vision. Despite the issue of a Presidential Decree in 2006 to enhance nuclear energy development, the program has remained in the planning stage, with no visible progress toward on-the-ground execution. Indonesia’s current energy priorities are still in the early stages of renewable energy, including solar power plants on islands, geothermal power plants in the highlands, and decentralized electricity grids for rural communities.
In the short term, the Indonesian Nuclear Power Plant (PLTN) Project slated for 2025 remains in the planning and preparation phases, with no physical construction initiated to date. Nevertheless, this project has been included in the 2025-2034 Electricity Supply Business Plan (RUPTL) of PT PLN (Persero) and is targeted to begin operations in 2032. The Indonesian government remains committed to developing nuclear energy as part of its energy transition efforts and achieving its decarbonization targets.
Aligned with Prabowo Subianto’s foreign policy agenda, which emphasizes the advancement of the energy sector, nuclear power development has become a key priority for the Indonesian government. Prabowo has expressed this through several state visits. Indonesia’s free and active foreign policy promotes strategic flexibility in pursuing international cooperation, particularly in the area that supports national energy security. Amidst prevailing global challenges, Indonesia must adopt a strategic and prudent foreign policy direction, prioritizing regional and global stability to escalating geopolitical tensions.
President Prabowo’s current direction of Indonesia’s “free and active” foreign policy is strategically oriented toward positioning the country as a regional leader within ASEAN. He asserts that this objective can be realized through a transformational approach aimed at expanding Indonesia’s nuclear energy capacity. This not only supports the implementation of renewable energy but also, through nuclear power, gives Indonesia new strength as a major power. Moreover, the development of nuclear power in Indonesia is not solely an energy policy decision, but also a reflection of the country’s geopolitical ambitions and its desire to assert a more prominent role in the international system.
What remains certain is that, if effectively implemented, the nuclear energy project holds the potential to generate a substantial, transformative, and innovative impact on Indonesia’s energy landscape. Beyond reinforcing national energy resilience, nuclear energy development may also support economic development through the conservation of conventional energy resources and the diversification of the energy portfolio. To add, it is expected to contribute to human capital development by expanding employment opportunities and advancing technical expertise within the nuclear energy domain. Geopolitically, Indonesia is progressively strengthening its presence on the international stage, indicating that the diplomatic execution of its “free and active” foreign policy is being carried out with increasing effectiveness.
Sellita - Lecturer, International Relations Department, Bakrie University, Jakarta, Indonesia.
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