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Table of contents

Approximate read time: 10 minutes

On 21 May 2025, the House of Lords is scheduled to debate the following motion in Grand Committee:

Lord Hunt of Kings Heath (Labour) to move that the Grand Committee takes note of the proposed national policy statement for nuclear energy generation.

1. Background

The UK generates around 15% of its electricity from about 6.5GW of nuclear power. [1] There are currently nine operational reactors in the UK at five plants. However, most existing capacity is due to be retired by 2030.

In 2022, the previous Conservative government set out its ambition to increase nuclear capacity in the UK from around 6GW to up to 24GW by 2050 in its ‘British energy security’ strategy.[2] The then government’s 2023 energy strategy ‘Powering up Britain’ included a commitment to launching Great British Nuclear (GBN), an arms-length body responsible for driving delivery of new nuclear projects. The measures required to launch GBN were passed in the Energy Act 2023.

In addition, the policy paper ‘Civil nuclear: Roadmap to 2050’, published in January 2024, included a commitment to “reverse decades of under-investment and to recover the UK’s global leadership in civil nuclear”. The roadmap included a commitment to launching consultations on alternative routes to market for new nuclear projects and a new approach to siting nuclear within the national policy statement.

2. What are national policy statements?

National policy statements (NPSs) guide decision-making for nationally significant infrastructure projects in England and Wales.[3] They are produced by the government and set out the policy as well as providing the reasoning behind it. They must also include an explanation of how the policy takes account of government strategy relating to the mitigation of, and adaptation to, climate change. NPSs are subject to public consultation and parliamentary scrutiny before being designated (published).

NPSs are the primary consideration in determining applications for development consent for nationally significant infrastructure projects.[4] This means they have more weight than any other statement of national, regional or local planning policy.

Under the Planning Act 2008, the government must determine a planning application for significant infrastructure projects in accordance with any NPS unless:

  • the decision would lead to the UK being in breach of any of its international obligations
  • the decision would lead to the secretary of state being in breach of any duty under other legislation
  • the decision would be unlawful
  • the secretary of state is satisfied that the adverse impacts of the proposed development would outweigh its benefits
  • the secretary of state is satisfied that any condition required for deciding an application not in accordance with an NPS is met[5]

There are currently 12 designated NPSs which set out government policy on different types of national infrastructure development.[6] They include six for energy, three for transport, two for waste infrastructure and one for wastewater.

3. Is the national policy statement for nuclear power generation changing?

3.1 A new national policy statement

Of the six energy NPSs, one is for nuclear power generation. The current statement, NPS EN-6, was designated on 19 July 2011 by the coalition government and has effect for listed nuclear projects capable of being deployed by the end of 2025.[7]

In recent years, both the current Labour government and former Conservative government have consulted on a new national policy statement for nuclear energy generation (EN-7) that would apply to nuclear power stations expected to be deployed beyond 2025.

3.2 Initial consultation

The then Conservative government launched the first round of consultation in January 2024.[8] It ran until March of the same year. The then government said the consultation contained proposals to make “some material updates to the existing policy for siting nuclear power stations” and said it wanted to seek views ahead of finalising the policy. It also explained that the consultation included proposals to broaden the scope of EN-7 to:

  • include new nuclear technologies such as small modular reactors (SMRs) and advanced modular reactors (AMRs)
  • empower developers to select sites utilising a criteria-based approach
  • remove deployment time limits

The current Labour government published a response to the feedback received from this initial consultation in February 2025, as part of its second round of consultation.[9] In an overview, the government said it had received 141 responses from a variety of individuals and organisations. It argued that overall the respondents agreed with the proposals. This included agreement from nuclear industry organisations, energy experts, regulators and local authorities. However, it also noted that views on the proposed criteria for a new siting policy differed across respondents, with “some criteria receiving strong support for inclusion over others”.

Further analysis of the feedback as well as the government’s full response to the initial consultation is set out in the follow-up consultation document.[10]

3.3 Follow-up consultation

The current government launched a second round of consultation in February 2025.[11] It closed on 3 April 2025 and the government has said it is analysing the feedback it received.

In its consultation documents, which included a draft EN-7, the government said it had outlined a “strategic approach to planning to help navigate the changing nuclear landscape”.[12] It said that the draft would:

  • provide for small and advanced modular reactors, as well as GW-scale nuclear infrastructure
  • bring nuclear into line with other energy infrastructure and provide applicants with robust criteria for site selection
  • remove deployment deadlines from the planning framework for new nuclear[13]

In his foreword, the secretary of state for energy security and net zero, Ed Miliband, explained that:

By adopting a criteria-based approach, EN-7 will enable nuclear development in more places alongside the eight previously identified sites, while maintaining the highest standards of safety, security and environmental protection. In the process, it will support cutting-edge technologies such as small modular reactors and advanced modular reactors, as well as gigawatt-scale plants—helping unlock nuclear’s potential to boost our energy security, create good jobs, drive growth and support climate action.[14]

The government’s consultation document also included information on the process and timeline for designating a new NPS for nuclear energy generation.[15] It said the final designation and publication should occur in late 2025, following incorporation of consultation and parliamentary feedback as well as parliamentary scrutiny in the summer and autumn.

4. What has been the reaction to the proposed new national policy statement?

Various stakeholders from the nuclear industry have voiced their support for the government’s plans.[16] A spokesperson for the Office for Nuclear Regulation, the UK’s independent nuclear regulator, welcomed the proposals. Rolls Royce SMR Director of Corporate Affairs Alastair Evans also welcomed the government’s plans as set out in the consultation documents. Mr Evans said that the announcement, “coupled with wider planning reform that is focused on growth”, would pave the way for the UK to “re-establish itself as a global leader in nuclear”. A spokesperson for Newcleo, a company proposing to build AMRs in the UK and elsewhere, agreed, stating that “this news is welcome to us as planning criteria has been overly prescriptive and stringent so far”. They argued the new draft policy reflected “our understanding of the need for flexibility in nuclear siting”.

Some stakeholders have highlighted areas where further consideration may be needed. For example, consultancy firm Turner and Townsend welcomed the government’s announcement.[17] However, it warned about construction capacity, stating that a previous lack of clear commitment to nuclear energy had meant that few construction firms had invested in the skills that would be needed. It said initiatives like the ‘Nuclear skills taskforce’ had been “a strong first step in attracting and developing a skilled workforce”, but careful management would be needed by Great British Nuclear to ensure the “acute skills gap” is addressed.

Energy UK, a trade association of the energy industry with over 100 members, gave its reaction by responding to the government’s latest consultation. It said:

The inclusion of SMRs and AMRs into national policy statements is a welcome step. The proposals are generally sound in this draft NPS, although there are some wider policies that are likely to have an impact on the deployment of these that may require additional consideration.[18]

Similarly, the Nuclear Industry Association, a trade association for the civil nuclear industry in the UK, said:

We strongly welcome the inclusion of small modular reactors and advanced modular reactors in the national policy statement for nuclear energy generation, the implementation of a criteria-based approach to siting, and the removal of deployment deadlines from the planning framework for new nuclear. We encourage government to further review the siting criteria of EN-7 to ensure that the opportunities associated with advanced nuclear technologies can be accommodated and leveraged to support the net zero energy transition.[19]

5. What is the government’s policy on nuclear energy?

5.1 Overview

In its 2024 general election manifesto, the Labour Party said it would “end a decade of dithering that has seen the Conservatives duck decisions on nuclear power”.[20] It stated it would ensure the long-term security of the sector, extend the lifetime of existing plants, and “get Hinkley Point C over the line”. The party also said that new nuclear power stations, such as Sizewell C and SMRs, would “play an important role in helping the UK achieve energy security and clean power while securing thousands of good, skilled jobs”.

Mr Miliband reaffirmed the government’s stance on nuclear energy in his foreword to the second round of consultation for EN-7:

For this government, nuclear has an essential role to play in our mission to make Britain a clean energy superpower.[21]

He said the government was “driving forward” Hinkley Point C, Sizewell C and Great British Nuclear’s SMR competition.

In December 2024, the government published its ‘Clean power 2030 action plan’.[22] Within this document the government said that along with renewables, nuclear power would “play a key role in achieving clean power 2030 and beyond”. It set out several actions it said it would take to support nuclear energy generation, including working with EDF to support the delivery of Hinkley Point C, which has been scheduled for completion between 2029 and 2031. The government also committed to an additional £2.7bn of funding for Sizewell C’s development in its autumn budget.[23]

5.2 Small modular reactors

Minister for Energy Michael Shanks set out further information on the government’s support for the development of SMRs in answer to a written parliamentary question.[24] Mr Shanks said the government recognised that SMRs could play an important role in energy security and clean power, whilst also providing good, skilled jobs. He said his department had supported their development through the advanced nuclear fund and the future nuclear enabling fund. He also noted that Great British Nuclear had been running a SMR technology selection process and was on track to make final decisions in spring 2025. Great British Nuclear published further information on this process as it entered its final stage in February 2025.[25]

6. Read more

Image by Kurt Klement from Pixabay

References

  1. World Nuclear Association, ‘Country profiles: Nuclear power in the United Kingdom’, 6 December 2024. Return to text
  2. Department for Energy, Security and Net Zero, ‘British energy security strategy’, 7 April 2022, p 21. Return to text
  3. Planning Inspectorate, ‘Nationally significant infrastructure projects: National policy statements’, 1 January 2012. Return to text
  4. Practical Law Planning, ‘National policy statements’, Practical Law (£), 2025. Return to text
  5. As above. Return to text
  6. Planning Inspectorate, ‘Nationally significant infrastructure projects: National policy statements’, 1 January 2012. Return to text
  7. As above. Return to text
  8. Department for Energy Security and Net Zero, ‘Approach to siting new nuclear power stations beyond 2025’, 11 January 2024. Return to text
  9. As above. Return to text
  10. Department for Energy Security and Net Zero, ‘A national policy statement for nuclear energy generation, EN-7: Response and new consultation’, February 2025. Return to text
  11. Department for Energy, Security and Net Zero, ‘Draft national policy statement for nuclear energy generation (EN-7)’, 6 February 2025. Return to text
  12. Department for Energy Security and Net Zero, ‘A national policy statement for nuclear energy generation, EN-7: Response and new consultation’, February 2025, p 9. Return to text
  13. As above. Return to text
  14. As above, p 5. Return to text
  15. As above, p 47. Return to text
  16. Tom Pashby, ‘Draft new nuclear policy sets out considerations for potential new reactor sites’, New Civil Engineer, 7 February 2025. Return to text
  17. As above. Return to text
  18. Energy UK, ‘A national policy statement for nuclear energy generation, EN-7: Response and new consultation’, 3 April 2025. Return to text
  19. Nuclear Industry Association (NIA), ‘NIA response to the national policy statement for nuclear energy generation (EN-7) consultation’, 2 April 2025. Return to text
  20. Labour Party, ‘Labour Party manifesto 2024’, June 2024, p 52. Return to text
  21. Department for Energy Security and Net Zero, ‘A national policy statement for nuclear energy generation, EN-7: Response and new consultation’, February 2025, p 5. Return to text
  22. UK Government, ‘Clean power 2030 action plan: A new era of clean electricity’, December 2024. Return to text
  23. HM Treasury, ‘Autumn budget 2024’, 30 October 2024. Return to text
  24. House of Commons, ‘Written question: Small modular reactors: Construction (34977)’, 11 March 2025. Return to text
  25. Great British Nuclear, ‘GBN at final stage of small modular reactor selection process’, 28 February 2025. Return to text