On 23 December 2002 Russian Nuclear Energy Minister Alexander Rumyantsev said that Novosibirsk enterprises of the Russia Nuclear Energy Ministry had manufactured 180 fuel rods for the first reactor unit of the nuclear power pant built in Bushehr. He added that the 'fuel rods will stay at the plant until the signing of an addendum to the acting agreement and equipping a storage facility for these elements in Iran by means of physical safeguarding at a level not lower than the standards of the International Atomic Energy Agency'. Iran has begun work 'to prepare a room for fuel storage and its equipment by means of physical safeguarding'. The total weight of the irradiated fuel rods for the first loading of the Bushehr reactor is 90 tons. Russia will deliver them to Iran by four flights of transport planes.
Iran initially announced that it will receive its first shipment of 90 tons of enriched uranium from Russia in May 2003. However, on 12 June 2003 Russian Defense Minister Sergei Ivanov stated that Russia would deliver nuclear fuel for the nuclear power station in Iran only after Tehran signs a memorandum binding it to return spent fuel to Russia. "As for the nuclear plant in Bushehr that is fully controlled by the IAEA, Russian fuel will be delivered there only in case Iran signs a memorandum obliging it to export the spent nuclear fuel back to Russia... We want Iran to observe all understandings with the IAEA. Iran itself should be interested in all programs being transparent and controllable so that there would be no ambiguity or variety of interpretation on the matter," Ivanov said. Russian statements conflicted as to whether the shipment of the fuel would be conditional on Iran signing the Additional Verfication Protocol, which would give IAEA inspectors access to non-declared facilities.
On 13 October 2003 a Russian official said there would be a delay of one year in the completion of the Bushehr nuclear power reactor. "Right now our specialists are drawing up a detailed plan for the plant and the start-up is set for 2005" as opposed to 2004, Nikolai Shingaryev, a senior spokesman for the atomic energy ministry, told AFP by telephone. "The reasons are purely technical, not political," he said. "There is a huge amount of equipment that is needed. Equipment (that we thought) would work is not going to work," he said.
In mid-November 2003 Russian Atomic Energy Minister Alexander Rumyantsev said it could be several months more before Moscow and Tehran sign the deal on spent fuel. The signing has been postponed repeatedly since the beginning of this year. The agreement is important because it would clear the way for Moscow to complete construction of Iran's first nuclear power reactor at Bushehr on the Persian Gulf. Rumyantsev said there is no rush to sign the agreement because Russian fuel shipments to Bushehr are not scheduled to start until early next year. Iranian officials, he said, are too busy opening their nuclear program to closer inspection by the International Atomic Energy Agency in Vienna to finalize the agreement now. Under US pressure, Russia has agreed not deliver any fuel to the Bushehr power plant until Iran signs the agreement, one of whose provisions requires Iran agree to return all of the reactor's spent fuel back to Russia for disposal.
On 13 February 2004 a Russian Energy Ministry official said that Iran and Russia might sign the protocol on exporting Russian nuclear fuel to Iran`s Bushehr Nuclear Plant and return of the use fuel to Russia within the next two weeks. The official said "The controversial protocol, that would pave the way for making functional Iran`s Bushehr Nuclear Plant, and Russia`s access to the major part of its money for completing the said plant, would be signed very soon, and no later than a fortnight from now." He emphasized, "When that protocol would be signed by the two countries` concerned officials, there would be practically no more obstacles on the way for making operational the Bushehr Nuclear Plant."
Russia withheld fuel for the reactor because of international concerns about Iran's nuclear ambitions. Iran and Russia will sign a deal in the summer of 2004 on the return of spent nuclear fuel Russia will provide for the Bushehr plant. The deal is intended to prevent the extraction of plutonium from spent fuel and its possible use in nuclear warheads. Russian officials had stated in the past that they will not ship fuel to the plant without an accord on the repatriation of spent fuel. US Under Secretary of State for Arms Control John Bolton had urged Russia not to supply nuclear fuel for Bushehr reactor until Tehran addressed the full range of concerns about Iran's nuclear-weapons efforts.
On 22 August 2004 the head of Iran`s Atomic Energy Organization Asadollah Sabouri, said Bushehr will become operational in October 2006, a year behind schedule. The contract for the return of the spent fuel, has been finalized, and differences exist over the costs, the official said. According to Sabouri, the two countries have set the deadline for Russia`s delivery of nuclear fuel for the power plant to Iran at the end of 2005.