Russia Signs $16.5 Billion Nuclear Energy Agreement with Kazakhstan

On May 28, 2026, Russian President Vladimir Putin and Kazakh President Kassym-Jomart Tokayev signed what may be the most consequential energy agreement in Central Asia in decades: a $16.5 billion contract for Rosatom, Russia's state nuclear corporation, to build Kazakhstan's first commercial nuclear power plant [1][3]. The deal cements Moscow's grip on civilian nuclear exports at a moment when Western governments have struggled — and in many cases declined — to sanction Russia's atomic industry.

The agreement also raises a question that extends far beyond Central Asia: what happens when the world's largest uranium-producing country binds its energy future to the one nation most Western democracies are trying to isolate?

The Deal: Two Reactors, $14 Billion in Russian Credit

The Balkhash Nuclear Power Plant will be built near the village of Ulken, on the southeastern shore of Lake Balkhash, featuring two VVER-1200 Generation III+ pressurized water reactors [2][3]. Combined, they will produce approximately 2.4 gigawatts of electrical capacity — enough to power several million households and a significant share of Kazakhstan's industrial base [2].

Construction is scheduled to begin in 2027, with the first reactor targeted for commissioning in early 2034 and full operations by 2035-2036 [1][3]. Approximately $2 billion of the total cost is allocated to security systems and foundational infrastructure [1].

The financing structure is the most striking element. Russia will finance roughly 85% of the project through export credit — approximately $14 billion in Russian state-backed loans [1][3]. Kazakhstan's government will cover the remainder. No third-party lenders or multilateral development banks have been publicly identified as participants.

This financing model follows a well-established Rosatom playbook. The corporation has used Russian state credit to fund nuclear construction in Bangladesh, Egypt, Turkey, and Hungary, offering terms — sometimes as low as 3% interest — that Western competitors and commercial lenders cannot match [10].

Why Kazakhstan Says It Needs This Plant

Kazakhstan's case for nuclear power rests on arithmetic, not ideology. The country faces a structural electricity deficit that has worsened steadily over the past decade.

Source: Eurasian Research Institute

Data as of Jan 1, 2024CSV

In 2023, Kazakhstan consumed 115.06 billion kWh of electricity but generated only 112.82 billion kWh, leaving a 1,519 MW shortfall covered by imports — primarily from Russia [8]. That deficit is projected to reach 6.2 GW by 2030 [8]. By 2035, consumption is expected to climb to 152.4 billion kWh, while domestic generation may fall below 135 billion kWh as aging coal plants are decommissioned and environmental regulations tighten [8].

Coal currently generates roughly 50% of Kazakhstan's electricity, with natural gas at 30% and hydropower at 12% [8]. Wind and solar account for just 6% [8]. Electricity tariffs rose 26% in the first three months of 2024 alone [8].

The October 2024 national referendum on whether to build a nuclear plant passed with 71.12% approval on a 63.66% turnout [8]. The vote carried particular weight given Kazakhstan's history: the country hosted Soviet nuclear weapons tests at the Semipalatinsk site for four decades, leaving lasting environmental contamination and deep public ambivalence about all things nuclear [9].

Source: World Bank Open Data

Data as of Dec 31, 2024CSV

Kazakhstan's economy has grown at roughly 4-5% annually in recent years, with GDP growth hitting 5.0% in 2024. That growth trajectory implies rising electricity demand that current coal-dependent infrastructure cannot meet.

The Competition Rosatom Beat

Rosatom did not win by default. Kazakhstan conducted a formal vendor selection process that included four shortlisted bidders: Russia's Rosatom (VVER-1200), China's CNNC (HPR-1000), France's EDF (EPR1200), and South Korea's KHNP (APR-1000/APR-1400) [11][12].

Kazakh authorities determined that Rosatom submitted "the most optimal and effective proposal," with CNNC ranked second and EDF and KHNP tied for third [12]. On the same day Rosatom was announced as the lead consortium builder, Kazakhstan also announced that CNNC would lead a second, separate consortium for additional nuclear capacity — a hedging strategy that distributes some risk across vendors [12].

The specifics of what made Rosatom's bid superior have not been fully disclosed, but several factors are visible. The 85% export credit financing is a terms package that neither EDF nor KHNP could replicate without sovereign backing from Paris or Seoul. France and South Korea offer competitive reactor technology, but their export credit agencies have not historically extended financing on the scale Russia provides [10][11]. Rosatom's VVER-1200 also has a more extensive operational track record than the EPR1200, which has faced significant cost overruns and delays at projects in Finland, France, and the United Kingdom [11].

The Caspian Policy Center characterized the decision as reflecting Kazakhstan's "foreign policy balancing act" — maintaining economic ties with Russia and China while keeping Western options open [11].

The Sanctions Gap: Why Rosatom Remains Untouched

Since February 2022, Western governments have sanctioned Russian oil, gas, coal, banking, and defense exports. Rosatom has been conspicuously excluded from comprehensive sanctions [6][7].

The reasons are structural. Nearly a fifth of the European Union's nuclear reactors are Soviet-designed and require fuel assemblies that only Rosatom and a handful of other suppliers can manufacture [6]. Roughly 20% of the EU's and 22% of U.S. uranium imports come from Kazakhstan, much of it processed through Russian-controlled enrichment facilities [5]. Russia controls approximately 44% of global uranium refining capacity [5].

The Biden administration reportedly considered sanctioning Rosatom but retreated after nuclear industry lobbying and concerns about disrupting the clean energy transition [6]. The U.S. did ban imports of Russian enriched uranium in 2024, but included waivers extending through 2028 to prevent supply shocks [7].

Meanwhile, Washington has granted project-specific exemptions. Hungary's Paks II nuclear plant, built by Rosatom, received a U.S. sanctions carve-out [7]. Turkey's Akkuyu plant secured a "special payment corridor" after Ankara argued to Washington that the project was essential to Turkish energy security [7].

The result is a regime in which Rosatom faces fewer restrictions than Russia's defense industry despite being a state corporation that reports directly to the Kremlin [6][7].

The Uranium Question: Structural Leverage

Kazakhstan produced 39% of the world's uranium in 2024, more than Canada (24%) and Namibia (12%) combined [5].

Source: World Nuclear Association

Data as of Jan 1, 2025CSV

This dominance creates an unusual dynamic in the new agreement. Kazakhstan is not a typical nuclear customer — it is the upstream supplier that much of the global nuclear industry depends on. The question is whether the Rosatom deal gives Russia operational influence over that supply chain.

The agreement's public terms do not indicate that Russia gains direct control over Kazakh uranium production or export. Kazatomprom, the state-owned uranium company, remains independent. However, the relationship is more intertwined than it appears on paper. Russia's Uranium One, a Rosatom subsidiary, held stakes in three joint ventures with Kazatomprom until recently selling them to Chinese companies [15]. And over half of Kazakhstan's uranium exports currently flow to China, with Russia controlling a significant share of global enrichment capacity — the step between raw uranium and usable reactor fuel [5].

The Finnish Institute of International Affairs has described a "Kazakhstan-Russia axis" in the nuclear fuel cycle, noting that Western nuclear programs that depend on Kazakh uranium are indirectly exposed to Russian influence at the enrichment stage [5]. The new power plant agreement does not change that dynamic directly, but it deepens the bilateral relationship in ways that could constrain Kazakhstan's willingness to redirect uranium exports away from Russian-aligned channels in a future crisis.

Rosatom's Growing Empire

The Kazakhstan deal arrives as Rosatom's foreign business is booming despite — or perhaps because of — Western efforts to isolate Russia economically.

Source: TASS / Rosatom Annual Reports

Data as of Mar 1, 2025CSV

Rosatom's foreign revenue reached $18 billion in 2024, up from $7.5 billion in 2019 — a 140% increase over five years [16]. Its ten-year foreign order portfolio stood at $128.8 billion at the end of 2024 [16]. The $16.5 billion Kazakhstan contract represents roughly 13% of that entire portfolio.

Since February 2022, Rosatom has signed over 70 international agreements and memorandums — 21 in 2022, 29 in 2023, and 24 in 2024 [13]. Its active construction projects span Bangladesh, China, Egypt, Hungary, India, and Turkey [13]. The corporation lost the Hanhikivi project in Finland, which was cancelled in May 2022 explicitly because of the invasion of Ukraine, but has more than offset that loss with new contracts in Africa, Latin America, and Southeast Asia [13].

The Kazakhstan deal is the largest single contract Rosatom has signed since the war began, and it sends a signal: even countries with strong economic ties to the West continue to choose Russian nuclear technology.

Precedents: What Happened to Other Rosatom Customers

The track record of countries that have signed major Rosatom infrastructure agreements offers a mixed but instructive picture.

Hungary signed a deal for the Paks II plant in 2014 with a €10 billion Russian state loan covering 80% of costs. Construction is now more than a decade behind schedule. Hungary has sought to renegotiate loan repayment terms with Moscow, and the project has become a persistent source of friction with the EU [10][14]. Budapest's dependence on Russian nuclear fuel and waste handling has constrained its foreign policy flexibility on Ukraine-related sanctions votes.

Turkey's Akkuyu plant, a $20 billion project, uses a build-own-operate model in which Rosatom retains ownership of the plant on Turkish soil — a unique arrangement that gives Russia a permanent physical presence in a NATO member state [13][14].

Egypt's El Dabaa plant carries a $25 billion price tag financed by a 35-year Russian loan. Analysts at the Bellona Foundation estimated the total repayment cost, including interest, could reach $71 billion [10].

Bangladesh's Rooppur plant, financed by an $11.4 billion Russian loan over 30 years, may generate up to $8 billion in interest payments alone [10].

The common pattern across these projects is not that the plants fail — several are progressing toward completion — but that the financing terms create multi-decade financial relationships with Moscow that are difficult to exit. The technology itself reinforces lock-in: VVER reactors require Russian-specific fuel assemblies and maintenance protocols, and switching to a different fuel supplier mid-lifecycle is technically complex and expensive [10][14].

The Exit Cost Question

What would it cost Kazakhstan to walk away from the agreement once construction begins?

No public termination clause has been disclosed. But precedents suggest the costs would be substantial. When Finland cancelled its Rosatom contract for the Hanhikivi plant in 2022, Rosatom's subsidiary — which held a 34% stake through a Finnish entity — demanded compensation for "unlawful termination" [15]. The legal dispute remains unresolved.

Germany's experience exiting Russian natural gas dependency offers a broader analogy. Berlin spent over €100 billion between 2022 and 2024 on LNG terminals, emergency procurement, and industrial subsidies to replace Russian gas [15]. The transition took years and imposed significant economic costs. Nuclear infrastructure, with its longer construction timelines and deeper technology integration, would be even harder to unwind.

For Kazakhstan, the practical reality is that once Rosatom begins pouring concrete at Ulken, the switching costs escalate rapidly. An incomplete VVER-1200 reactor cannot easily be completed by EDF or KHNP — the engineering standards, component specifications, and safety documentation are proprietary. Kazakhstan would face the choice of paying billions to exit and starting over, or continuing with a project tied to Moscow for decades of fuel supply, maintenance, and eventual decommissioning.

Kazakhstan has signaled awareness of this risk. Its decision to award a second nuclear consortium to China's CNNC provides a partial hedge, ensuring that not all of its nuclear infrastructure depends on a single vendor [12]. The country has also announced plans to end electricity imports from Russia by 2027, and recently dropped Russian contractors from three thermal power plant projects in favor of Chinese and Singaporean firms [15].

The Sovereign Calculus

Western commentary has overwhelmingly framed the deal as a geopolitical win for Putin and a loss for the West. That framing captures part of the picture but obscures Kazakhstan's position.

Astana faces a genuine energy crisis. Its coal plants are aging, its electricity deficit is growing, and its renewable energy sector — at 6% of generation — is years away from providing baseload power at scale [8]. The country held a democratic referendum on nuclear power and received a clear mandate [8]. It conducted a competitive vendor selection. And it chose the bid with the most favorable financing terms and proven reactor technology [11][12].

The argument that Kazakhstan should have chosen a Western vendor assumes that Paris or Seoul would have matched Rosatom's 85% export credit financing — and there is no evidence they offered comparable terms [11]. It also assumes that French or Korean reactors carry no geopolitical baggage, which overlooks the political conditions that Western governments and export credit agencies routinely attach to major infrastructure financing.

At the same time, the sovereign case has limits. Kazakhstan is choosing a multi-decade dependency on a state corporation controlled by a government currently prosecuting a war of aggression in Ukraine. The financial terms that make Rosatom's bid attractive in 2026 could become instruments of leverage in 2036. And the precedents from Hungary, Egypt, and Bangladesh suggest that below-market loan rates often carry above-market long-term costs.

What Comes Next

Construction at the Ulken site is expected to begin in 2027 [1]. Kazakhstan's Atomic Energy Agency will oversee regulatory approval and safety certification processes over the next 12-18 months.

The deal's implications extend beyond Kazakhstan. If completed on schedule, the Balkhash plant would be the first new Rosatom-built reactor in Central Asia — a region where Russia, China, and the West are competing for influence across energy, mining, and infrastructure. Uzbekistan has also been in discussions with Rosatom about nuclear construction, and Kyrgyzstan has expressed interest [13].

For Western governments, the Kazakhstan agreement underscores the cost of leaving Rosatom unsanctioned. Every year that the corporation operates without comprehensive restrictions, its order book grows and its customers become more deeply locked into Russian technology ecosystems. The $128.8 billion foreign portfolio Rosatom reported at the end of 2024 represents commitments that will take decades to unwind — regardless of what happens in Ukraine [16].

For Kazakhstan, the bet is that a Russian-built nuclear plant will deliver reliable electricity at a manageable cost, without ceding sovereignty in ways that coal and gas never did. Whether that bet pays off will depend on terms and conditions that, for now, remain largely out of public view.