Advancing Pakistan’s Nuclear Safety and Security Culture

The global order is going through turbulent times in the wake of a new great power competition between the United States and China. Conflicts are engulfing different regions of the world from Europe to the Middle East and Central Asia to Africa. Recent May crisis between India and Pakistan is a sombering reminder of the escalation threats posed by a conflict to the regional and international security. Threats to the security of nuclear installations because of active conflicts have evolved as a new dimension for the safety and security of nuclear installations. Amid the Ukraine-Russia conflict the threat to the safety of Zaporizhzhia Nuclear Power Plant (ZNPP) and other nuclear installations has increased the importance of safety and security of Nuclear Power Plants (NPPs) in security circles. It is important for states to realize that even during an active conflict NPPs are off limits. Climate change also poses a serious threat to both human security and state security. Nuclear energy, being a clean source of energy, can play a very important role in this regard. Because of its benefits there is increased focus on nuclear power. However, it is also imperative for states to evolve their own nuclear safety and security practices to avoid any kind of nuclear catastrophe. 

Because of the benefits it provides Pakistan is increasing its reliance on nuclear energy. At the same time, nuclear safety and security are a top priority for the government of Pakistan, and a part of its domestic and international obligations. Pakistan has implemented a robust and fully compliant with global norms national nuclear safety and security system. This article examines Pakistan’s evolving nuclear safety and security culture, emphasizing its significance in the contemporary global context.

The International Atomic Energy Agency’s (IAEA) Nuclear Security Culture Implementing Guide is used as an evaluation tool to assess Pakistan’s efforts in line with international best practices. It explores the working of different organizations and legal frameworks enacted to ensure the safety and security of NPPs. Moreover, it explores the challenges that Pakistan is facing in advancing nuclear safety and security culture; often due to lack of awareness and misperception in the general public. This review is focused on providing a clearer image of the nuclear safety and security regime of Pakistan and to address misperceptions regarding Pakistan’s nuclear program arising generally from lack of information on the topic. The possible policy recommendations for Pakistan to advance its nuclear safety and security culture presented in this paper include raising general public awareness, increasing women and youth engagements, comprehensive policy assessments, diplomatic efforts, and international collaboration through technical exchange programs, and enhancing transparency and communication among others. It also points out that to strengthen Pakistan’s nuclear safety and security culture, the importance of a sustained, coordinated effort from all stakeholders is needed.

What is Nuclear Safety and Security?

The safety and security of nuclear materials have been a major concern since the splitting of the atom. IAEA has defined nuclear security as “The protection and detection of, and response to, criminal or intentional unauthorized acts involving or directed at nuclear material, other radioactive material, associated facilities or associated activities.” Nuclear Safety, on the other hand, is defined as, “The achievement of proper operating conditions, prevention of accidents and mitigation of accident consequences, resulting in protection of workers, the public and the environment from undue radiation risks.”

Ensuring both safety and security of NPPs is regarded as a responsibility of both state and international organizations like the IAEA. It is incumbent on states to take all the necessary measures for the security of their nuclear assets. Any lapses in nuclear security and safety can have serious consequences for both domestic and international security. The importance of nuclear security warrants states to develop and advance a culture that inoculates best practices in all the strata of society to prevent sabotage or theft of nuclear materials. Nuclear security culture is defined as “The assembly of characteristics, attitudes, and behaviors of individuals, organizations, and institutions which serves as a means to support, enhance and sustain nuclear security.” It is necessary that all the actors at the state, organizational, managerial, and individual levels work together to ensure appropriate adherence to guidelines for protecting nuclear material. 

The international nuclear security regime is underpinned by six important multilateral agreements that include; i) UN Security Council Resolution 1373, ii) UN Security Council Resolution 1540, iii) Nuclear Terrorism Convention, iv) The Convention on the Physical Protection of Nuclear Material (CPPNM) and its amendment 2005, v) The Physical Protection of Nuclear Material and Nuclear Facilities INFCIRC/225/Rev.5 (INFCIRC/225), and vi) the IAEA code of conduct on the safety and security of radioactive sources.

Pakistan’s Nuclear safety and Security Regime

Pakistan’s nuclear program is more than fifty years old as its first nuclear reactor – Pakistan Atomic Research Reactor (PARR-1) – went critical in 1965. It has received international appreciation for its nuclear security measures which are acknowledged to be in line with international norms and standards. DG IAEA, Rafael Grossi during his visit to Pakistan in 2023 remarked that Pakistan has a “world-class and impeccable” nuclear safety record. Pakistan’s nuclear security training center of excellence (PCENS) was described as an “impressive center” by then DG IAEA during his speech at the Nuclear Security Conference in 2016.

IAEA has defined a nuclear security regime as, “the legislative and regulatory framework and administrative systems and measures governing the nuclear security of nuclear material, other radioactive material, associated facilities, and associated activities.” Pakistan has enacted a set of legislative structures, an independent regulatory body, and different institutions to ensure the safety and security of its nuclear program. Pakistan has set up its nuclear operator body – Pakistan Atomic Energy Commission (PAEC) – through the 1965 PAEC Ordinance. According to the ordinance, PAEC through the federal government operates and owns all the nuclear installations in Pakistan. Moreover, the government also promulgated the Pakistan Nuclear Safety and Radiation Protection Ordinance in 1984 which ensures that the physical protection of nuclear material during their use, storage, and transport should be ensured and also provides license for the disposal of radioactive waste from the nuclear facilities.

Pakistan has also created an independent nuclear regulatory body called Pakistan Nuclear Regulatory Authority (PNRA) that was formed under the 2001 PNRA Ordinance repealing the 1984 ordinance. PNRA is responsible for ensuring the safe and secure use of nuclear technology and materials in Pakistan. Its functions encompass regulatory oversight, licensing, inspection, and enforcement to uphold national and international standards. PNRA reports directly to the Prime Minister and is an independent and autonomous body. It does coordinate with the Strategic Plans Division (SPD) and PAEC but is not under them in any manner.

Pakistan has also formed an export control regime under the Export Control Act of 2004 and its associated regulations. These legal instruments provide the basis for controlling the export, re-export, transit, and transshipment of strategic goods, technologies, and materials. The regime identifies specific categories of goods, technologies, and materials that are subject to export controls based on their potential relevance to WMD proliferation. This includes items such as dual-use goods with both civilian and military applications, as well as items explicitly designed for military purposes. Exporters are required to obtain licenses or authorizations from the relevant authorities, such as the Strategic Export Control Division (SECDIV) of the Ministry of Foreign Affairs, before exporting controlled items. The licensing process involves assessing the end-use, end-user, and destination of the items to ensure they do not contribute to proliferation activities.

Pakistan’s Efforts for Strengthening Nuclear Safety Culture

Pakistan has taken significant steps to strengthen its nuclear safety culture and ensure the secure management of radioactive materials. As a party to the CPPNM, its Amendment (A/CPPNM), and the CNS, Pakistan demonstrates a commitment to adhering to international nuclear safety standards. Although Pakistan is yet to join the Joint Convention on the Safety of Spent Fuel Management and the Safety of Radioactive Waste Management, it has made substantial advancements in managing its spent nuclear fuel and radioactive waste. Historically, Pakistan’s relatively new reactors enabled efficient spent fuel management, though two reactors now in long-term operation signal potential future challenges. To prepare, Pakistan has improved its nuclear safety infrastructure, implementing all 13 initial recommendations from a 2014 review and addressing 29 out of 31 additional suggestions. Enhancements include updated regulations, a stronger regulatory framework, and upgrades to the National Radiation Emergency Coordination Centre (NRECC), underscoring Pakistan’s commitment to safe nuclear facility operations.

In 2022, the Integrated Regulatory Review Service (IRRS) mission highlighted further opportunities for Pakistan, recommending that it consider joining the Joint Convention for greater international cooperation on spent fuel and waste management. The IRRS team also suggested Pakistan to enhance public engagement in nuclear decision-making. While joining the convention would entail specific international obligations, Pakistan has already developed robust capabilities in spent fuel management, evidenced by its Karachi and Chashma dry storage facilities, which incorporate certified storage casks to contain ionizing radiation and safely manage decay heat. Pakistan’s efforts in radioactive waste management are further supported by facilities like the PINSTECH Predisposal Radioactive Waste Management Facility (PPRWMF) and the KANUPP Radioactive Waste Storage Area, which ensure safe storage of waste radioactive material.

Further bolstering its nuclear safety infrastructure, in 2023, the IAEA’s DG Rafael Grossi, inaugurated a spent fuel dry storage facility and a Cyberknife cancer center in Pakistan. In August 2024, a national workshop facilitated by the IAEA brought together key national bodies, including the PNRA, to deepen understanding of international nuclear safety standards and civil liability frameworks. Given these advancements and the strategic importance of nuclear safety, Pakistan’s proactive engagement with the Joint Convention would foster stronger safety protocols, enhance global collaboration, and further align its spent fuel and waste management practices with international standards.

Evaluating Pakistan’s Nuclear Security Culture Through the IAEA Toolkit

In 2008, the IAEA published a nuclear security culture implementation guide for states to assess their nuclear security culture. According to the toolkit, to develop a nuclear security culture, a role has to be played at the state level, organizational level, individual level, public level, and the international community. 

According to the INFCRIC/Rev-5 of IAEA, it is the responsibility of the state to establish, implement, and maintain a physical protection regime. Pakistan’s nuclear security regime shows that a series of steps have been taken to establish different institutions by the state for the physical protection of nuclear material. These include independent regulatory bodies, the export control division, nuclear security division of SPD among others.

At the organizational and individual level, Pakistan has formed institutions to inoculate the best nuclear security practices among its personnel. These institutions include Pakistan Center of Excellence for Nuclear Security (PCENS), Pakistan Institute of Engineering and Applied Sciences (PIEAS), and National Institute of Safety and Security (NISAS). Educational institutions like PIEAS play crucial roles in educating nuclear scientists and engineers, while collaborations with international organizations like the IAEA enhance capacity building and best practices consolidation. Individual attitudes are pivotal in fostering a strong nuclear safety culture. Pakistan emphasizes education and training for nuclear personnel, conducts safety culture surveys, and prioritizes safety at nuclear installations. These efforts contribute to a better understanding of potential safety hazards and reinforce a culture of safety.

To further improve individual attitudes towards nuclear security, Pakistan has developed several programmes including the Personnel Reliability Program (PRP) and Human Reliability Program (HRP). Pakistan under the guidelines of the IAEA has also introduced an assessment procedure for nuclear security culture (in the form of a survey) among scientists and engineers. Furthermore, the PNRA promotes a safety and security culture in nuclear facilities by certifying that it is on the licensee’s agenda at the highest organizational level. To accomplish this, the PNRA has implemented a number of initiatives aimed at developing the capabilities of regulatory officials across various disciplines. According to the Nuclear Threat Initiative (NTI) index, Pakistan is improving its nuclear security score with every passing year.  A brief comparison of Pakistan’s improvement over a decade has been described in Table 1 

Table 1: Pakistan Score in the NTI Index

Secure Materials according to NTI Index	Pakistan
	2023 score	Changes since 2012
Overall	49/100	+18
Quantities and Sites	19/100	0
Security And Control Measures	57/100	+41
Global Norms	44/100	+9
Domestic Commitments and Capacity	100/100	+27
Risk Environment	21/100	+5

Chapter 2

Bilateral Nuclear Security Agreement: A lesson for Others?

The Russia-Ukraine conflict has highlighted a new concern for the safety and security of NPPs – attacks on a plant during active conflict. The Zaporizhzhia NPP has been under repeated threat from fighting in the area. Moreover, after a Ukrainian incursion in the Kursk region of Russia, there were fears about the Kursk Nuclear Power Plant (KNPP) In light of such events, the non-attack agreement between Pakistan and India can serve as a template for other states to reach similar bilateral and multilateral arrangements. According to the agreement, signed in 1988, “both states shall refrain from undertaking, encouraging or participating in, directly or indirectly, any action aimed at causing the destruction of, or damage to, any nuclear installation or facility in the other country.” This includes nuclear power reactors, fuel fabrication, uranium enrichment, isotope separation, and reprocessing facilities. Both parties exchange a list of their facilities on 1st January of each year. Other states can agree on similar agreements, and these can be facilitated by the IAEA to ensure the safety of nuclear facilities even during an active conflict. 

Policy Recommendations

Improving Pakistan’s global image and countering misperceptions about its nuclear safety and security regime faces challenges. Political instability, governance issues, and non-state actors backed by foreign states pose some of the challenges. Proactive nuclear diplomacy, involvement of civil society and academia, and enhanced international cooperation are essential to address these challenges effectively. To further advance nuclear safety and security culture in Pakistan, there are several policy recommendations that can be incorporated by the government. Some of these recommendations are described below:        

Enhancing Cybersecurity Measures: As cyber threats continue to grow, Pakistan should prioritize the development and implementation of comprehensive cybersecurity measures to protect critical nuclear infrastructure from cyberattacks. This involves investing in state-of-the-art cybersecurity technologies, conducting regular cybersecurity assessments and audits, establishing cyber incident response teams, and promoting cybersecurity awareness among nuclear personnel. Collaborating with international partners and organizations specializing in cybersecurity can provide valuable expertise and resources to strengthen Pakistan’s cyber defenses.

AI Robotics for Nuclear Safety: AI robotics are now being used in a few states as a replacement of inspectors, in nuclear spent fuel pools for inspection purposes. This is to avoid any accident related to workers/inspectors who are exposed to ionizing radiation within nuclear facilities. More AI technologies can be used for similar purposes to protect workers and the environment from harmful radiation, prevent accidents and enhance nuclear security of power plants. AI technologies can help Pakistan in advancing nuclear safety and security culture.

Introducing Policy Cycles and similar Projects featuring Interdisciplinary Working Groups: Interdisciplinary working groups can be engaged in projects focused on promoting nuclear safety and security culture in Pakistan. Interdisciplinary research can generate new avenues for Pakistan to foster nuclear safety and security culture and promote global disarmament objectives.

Awareness Campaigns: Develop and implement comprehensive awareness campaigns to educate the general public about nuclear safety and security issues. Utilize various communication channels, including traditional media, social media, educational institutions, and community outreach programs, to disseminate accurate information and address misconceptions.

Engagement of Women and Youth: Increase the engagement of women and youth in nuclear safety and security initiatives. Encourage their participation in training programs, workshops, and decision-making processes to bring diverse perspectives and expertise to the table.

Centers of Excellence for Education: Pakistan has already established a center of excellence for nuclear safety that is providing cutting edge education to its officers and first line defenders. New centers for education can be built in universities like PIEAS to further foster nuclear security in the country.

Comprehensive Policy Assessments: Conduct regular assessments of existing policies and regulations related to nuclear safety and security to identify gaps, weaknesses, and areas for improvement. Ensure that policies are updated and strengthened to address evolving threats and challenges effectively.

Diplomatic Efforts: Engage in diplomatic efforts to enhance international cooperation and collaboration on nuclear safety and security issues. Build partnerships with other countries, regional organizations, and international agencies to share best practices, exchange information, and coordinate joint initiatives.

Technical Exchange Programs: Facilitate technical exchange programs and capacity-building initiatives with international partners to strengthen Pakistan’s nuclear safety and security culture. Provide opportunities for training, knowledge transfer, and collaboration on technical expertise, risk assessment methodologies, and emergency response planning.

Introducing Interdisciplinary Courses on Nuclear Safety and Security: Another process can be the introduction of new interdisciplinary forces for both policymakers and practitioners to strengthen their understanding of the critical subject. This would help policymakers to understand the technical details, whereas scientists can learn more about policy implications of the safety and security of nuclear plants.

Coordination and Stakeholder Engagement: Foster a culture of cooperation and coordination among all stakeholders involved in nuclear safety and security, including government agencies, regulatory bodies, industry stakeholders, academia, and civil society organizations. Encourage active participation, information sharing, and joint decision-making to ensure a holistic and integrated approach to nuclear security.

Enhancing Transparency and Communication: Improving transparency in nuclear security practices and communicating effectively with stakeholders, including civil society, academia, and international partners, is crucial to building trust and confidence in Pakistan’s nuclear program. Regular reporting on security measures, threat assessments, and compliance with international obligations can enhance transparency and demonstrate Pakistan’s commitment to nuclear security. Establishing channels for open dialogue and information exchange can help address misconceptions and enhance public awareness of nuclear security issues.

Addressing Governance and Political Stability: Addressing governance issues and ensuring political stability are fundamental to strengthening nuclear safety and security in Pakistan. Efforts to enhance governance structures, streamline decision-making processes, and improve coordination among relevant agencies can enhance the effectiveness of security measures. Political stability and continuity of policies are essential to provide a conducive environment for long-term investments in nuclear security infrastructure and capabilities.

Conclusion

Pakistan is steadfast in its commitment to advancing nuclear safety and security culture in line with international standards, recognizing its significance for both national and global security. The efforts of Pakistan as explained in the article points out that nuclear security remains a cornerstone of its policy, Pakistan has progressively enhanced its regulatory, legal, and institutional frameworks to align with best practices, further reinforced by endorsements from the International Atomic Energy Agency (IAEA). Despite challenges such as public awareness gaps and regional tensions, Pakistan’s initiatives, including international workshops, a focus on cybersecurity, and active participation in global nuclear safety frameworks, demonstrate a comprehensive approach. Moreover, Pakistan’s nuclear security culture—integrated with educational, organizational, and policy structures—embodies a proactive stance aimed at mitigating risks associated with nuclear assets. This ongoing commitment not only strengthens domestic safeguards but also positions Pakistan as a responsible actor in promoting nuclear safety and security on a global scale.

This article was published on another form at https://www.atomicreporters.com/2025/06/advancing-pakistans-nuclear-safety-and-security-culture/