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"ACA's journal, Arms Control Today, remains the best in the market. Well focused. Solidly researched. Prudent."

– Hans Blix
Former IAEA Director-General
Issue Briefs

Nuclear Checks and Balances

Daryl G. Kimball

Four years ago, Congress called on the president to reassess the military requirements for nuclear weapons in the post-Cold War era. Yet, rather than reduce U.S. reliance on nuclear weapons, President George W. Bush launched a costly and counterproductive campaign to research and develop new, more “usable” nuclear weapons and to expand the repertoire of U.S. nuclear attack options.

After narrowly approving funding requests for research on new weapons for the last two years, Congress has finally begun to rein in Bush’s worst nuclear excesses. Last month, congressional appropriators denied the administration’s fiscal year 2005 requests for $9 million to investigate “advanced concepts,” such as new low-yield warheads, and $27 million to enhance the bunker-busting capability of an existing high-yield warhead.

The outcome is a stunning, bipartisan rejection of the administration’s flimsy arguments for new nuclear weapons and new nuclear missions. Opposition came from an array of House and Senate Democrats, as well as from Republicans, including Rep. David Hobson (Ohio), the powerful chairman of the House appropriations subcommittee that oversees Energy Department weapons spending.

Using twisted logic worthy of “Dr. Strangelove,” administration officials claim that the United States needs to adapt its existing Cold War nuclear arsenal to deter and defeat new adversaries and to make them available for use in conflicts that could begin as conventional wars. Enhancing the ability of nuclear warheads to penetrate underground and reducing their yields, they say, would make it more plausible that an American president might actually use nuclear weapons in a conflict with a country such as Iran or North Korea. At the same time, the administration claims the new weapons would only “slightly complicate” U.S. nonproliferation efforts.

Congress did not buy it. Hobson and others realized the nonproliferation costs of trying to enhance the credibility of U.S. nuclear threats are high and the benefits illusory. As another leading opponent of the new weapons initiative, Rep. Edward Markey (D-Mass.), put it, “If we are to convince other countries to forgo nuclear weapons, we cannot be preparing to build an entire new generation of nuclear weapons here.”

Maintaining and expanding the role of U.S. nuclear weapons not only violates accepted international norms of nonproliferation behavior, but it invites countermoves by former adversaries and would-be nuclear powers. The devastating power and collateral effects of the proposed new weapons also make it clear that their use or threat of use is no more credible, necessary, or justifiable than existing nuclear weapons.

Destroying a deeply buried bunker requires a high-yield blast too large to avoid dispersal of radioactive debris and fallout even if the weapon is designed to penetrate tens of meters before detonation. If new, smaller-yield nuclear weapons are used against suspected chemical or biological weapons sites, the fallout would still be significant, and small errors in intelligence and targeting could disperse rather than destroy deadly chemical or biological material. Improvements in specialized conventional munitions offer significant and more practical capabilities without the risk of crossing the nuclear threshold.

“Other than a Cold War ‘Russia gone bad’ scenario, I don’t believe our nuclear stockpile is useful against our new foes,” Hobson told a National Academy of Sciences gathering in August. “What worries me about the nuclear penetrator is that some idiot might try to use it.”

The Departments of Energy and Defense sought to retain the support of waivering congressional members by claiming the controversial programs were only “research.” Citing the Energy Department’s $485 million, five-year plan for nuclear earth penetrator research and development, Hobson rejected what he called “superficial assurances that the activity is only a study and that advanced concepts is only a skills exercise for weapons designers.”

The 2005 freeze on new weapons research is the result of three years of growing opposition and strong leadership from key lawmakers. It could also be the beginning of the end for the program. If the administration tries to revive these nuclear weapons research programs, it will reignite opposition in Congress and further complicate efforts to strengthen the nuclear Nonproliferation Treaty at the May 2005 Review Conference.

Rather than continue to pursue its obsession with a new generation of nuclear weapons, the White House should cut its losses and focus the Energy Department on its primary mission: maintaining the reliability of the remaining nuclear stockpile, while dismantling the growing number of excess weapons here and abroad.

Today’s greatest security challenges are shutting down global terrorist networks, stopping the spread of nuclear weapons, and reducing the likelihood that they are someday used by other countries or terrorists. The logical response is not to invent new missions and find new targets for U.S. nuclear weapons but to reduce their allure and, so long as they remain, strictly limit the role of nuclear weapons to deterring nuclear attack by other states.

Obsolete Relics of a Dead Conflict

Daryl G. Kimball


Some habits, even dangerous ones, can be difficult to break. Nearly 50 years ago, the United States introduced so-called tactical nuclear weapons into NATO forces in Europe to deter and, if necessary, use against a Soviet land attack. Not long after, the Soviet Union followed suit.

The U.S.-Soviet military rivalry is now over. Yet, both countries cling to the remnants of their massive tactical nuclear arsenals. They serve no meaningful military role for the defense of Europe or Russia, and the possible loss or theft of these weapons poses an unacceptable risk of nuclear terrorism. It is past time to account for and verifiably eliminate tactical nuclear weapons, beginning with those stationed in Europe.

During the Cold War, each side amassed thousands of these “battlefield” nuclear bombs for delivery by bombers, ships, and artillery. Today, the United States continues to maintain approximately 1,300 tactical nuclear weapons, including about 480 bombs deployed on NATO military bases in Belgium, Germany, Italy, the Netherlands, Turkey, and the United Kingdom. In response, Russia is estimated to possess at least 3,000 of these generally smaller, portable, but still devastating weapons.

The first and last serious effort to address the issue came in 1991, when Presidents George H. W. Bush and Mikhail Gorbachev unilaterally withdrew most forward-deployed tactical nuclear weapons to build confidence as the Soviet Union collapsed. Yet, in the absence of verification measures, significant questions remain about how Moscow has implemented its 1991 pledges and about the size, location, and security of Russia’s remaining tactical nuclear forces.

In 1997, Presidents Bill Clinton and Boris Yeltsin agreed to explore controls on tactical nuclear weapons in the context of future nuclear arms negotiations but failed to do so. Unfortunately, Presidents George W. Bush and Vladimir Putin did not address the issue in the context of the May 2002 Strategic Offensive Reductions Treaty.

Although senior Bush administration officials and leading Democrats have expressed interest in controlling tactical nuclear weapons, there is no active effort to do so. Russia, which has increased its reliance on nuclear weapons, refuses to enter into talks on tactical nuclear arsenals mainly because the United States and its NATO partners still deploy such weapons in Europe.

NATO’s current strategic plan claims that its nuclear forces in Europe “provide an essential political and military link” between the United States and European alliance members. As a result, NATO maintains an antiquated nuclear posture, which allows for the first use of nuclear weapons in a conflict, including in reply to an attack with conventional weapons.

In the 21st century, tactical nuclear weapons are more useful for terrorists than for fighting terrorism or keeping the peace between nations. Whatever symbolic value the weapons may provide for NATO unity is far outweighed by the risk that some of Russia’s weapons might be lost, stolen, or sold to another nation or a terrorist group. Russia’s inadequate nuclear command and control systems and weapons transportation practices make its thousands of tactical nuclear devices a prime terrorist target. Just one of these bombs could be used to destroy a city.

Complicating progress on tactical nuclear arms reductions, the United States is also exploring new battlefield nuclear weapons. If left unchecked, the effort could lead to the development and deployment of a modified version of an existing high-yield bunker-busting warhead or possibly a new type of lower-yield tactical nuclear weapon. Russia and other states can be expected to match any such U.S. move.

The devastating power and inescapable collateral effects of such weapons make them inappropriate tools against non-nuclear targets. Rather than treating tactical nuclear weapons as just another part of the vast U.S. arsenal, the United States must diminish their value and vulnerabilities and cancel the new weapons research.

The next U.S. administration must align tactical nuclear weapons policy with present-day realities, and soon. To open the way to cooperation with Russia on the consolidation and dismantlement of its large and destabilizing tactical nuclear stockpile, NATO should announce that it will not be the first to use nuclear weapons and begin withdrawing its obsolete tactical nuclear forces from Europe. The United States should also invite Russia to negotiate an agreement on warhead accounting and the verifiable dismantlement of excess tactical nuclear weapons.

Through two U.S. and two Russian presidencies, government leaders have failed to tackle the dangers posed by their Cold War tactical nuclear weapons arsenals. A new initiative to reduce and verifiably eliminate these weapons would reduce the salience of all nuclear weapons, reinforce global nonproliferation efforts, and lower the danger of nuclear terrorism.

 

Iran: Getting Back on Track

Daryl G. Kimball

Since the world’s nuclear watchdog agency confirmed reports of Iran’s extensive and secret nuclear activities more than two years ago, international concerns that Tehran might soon acquire bomb-making capabilities have grown.

The crisis will surely worsen in the next few months unless Iran exercises greater restraint and stops short of completing a large-scale nuclear material production capability. At the same time, the United States must recalibrate its strategy to complement, not complicate, the European diplomatic initiative to reduce Iran’s incentives to acquire the bomb and keep it within the nuclear Nonproliferation Treaty (NPT).

Last year, France, Germany, and the United Kingdom persuaded Iran to agree to voluntarily and temporarily halt its uranium-enrichment program and accept tougher International Atomic Energy Agency (IAEA) inspections. The deal created valuable diplomatic breathing space and the opportunity for the IAEA to gather detailed information about the full extent and nature of Iran’s program.

Iran has grudgingly allowed the IAEA extensive access and information about its covert projects. But several questions still remain, including whether Iran has already enriched uranium. And, last spring, Iran began to undermine confidence by delaying the entry of inspectors and by continuing to manufacture parts for centrifuges for the enrichment process.

The leaders of energy-rich Iran insist these activities are for peaceful purposes and are allowed under the NPT. Their assurances are hardly reassuring. Uranium-enrichment technology cannot only be used to produce low-enriched fuel for power reactors, but also weapons-grade nuclear material.

A close reading of the NPT makes it clear that peaceful nuclear endeavors are a benefit that accrues only to those nonweapons NPT states that credibly fulfill their obligation not to divert nuclear material and technology for weapons.

Accordingly, the Europeans have privately held out the possibility of greater economic ties and a guaranteed nuclear power fuel supply if Tehran’s leaders agree to forgo the capacity to produce nuclear weapons-usable materials. Though this would open the way for much needed foreign investment and allow Iran to produce nuclear energy, the idea has not yet been embraced by Tehran.

Meanwhile, U.S. diplomats have maintained a harder line, charging that Iran has already violated its safeguards agreements. U.S. and Israeli officials have unsuccessfully called on IAEA states to refer the case to the UN Security Council, where they could seek international sanctions against Iran.

This, in turn, has inflamed Iranian nationalism and hardened the government’s stance. Shortly after IAEA member states urged it not to do so, Iran announced last month that it will begin processing about 40 tons of uranium into feed material, which, if enriched to weapons grade, would be enough for several bombs.

Some U.S. officials argue that diplomacy at the Vienna-based IAEA has run its course. However, referral of the Iranian case to the Security Council may push Iran to eject IAEA inspectors or withdraw from the NPT. Getting the council’s approval for sanctions is far from guaranteed and would do little to halt Iran’s advanced nuclear program. More drastic action is also unwise. The effect of a pre-emptive strike by Israel or the United States on Iran’s capabilities would be temporary and would likely trigger a wider war in the region involving exchanges of ballistic missiles.

Although difficult, diplomacy remains the best option. First, Iran should be careful not to escalate the crisis. The European powers must hold Iran to its earlier pledge to halt all uranium-enrichment work and provide the access and cooperation necessary to finally resolve outstanding questions about its past activities. Otherwise, the credibility of Iran’s claim that it has no weapons ambitions will diminish further.

For its part, the United States should tone down its tough talk and work with the Europeans to test Iran’s “peaceful” intentions by endorsing the proposal to provide Iran with a guaranteed supply of nuclear fuel. If Iran is only interested in developing a nuclear power capacity and its perceptions of vulnerability are not reinforced, it should eventually agree to such a deal.

To prevent other states from acquiring the means to produce nuclear bomb material, the international community must be prepared to guarantee nuclear fuel services to states that forgo indigenous uranium-enrichment and plutonium production capabilities. In addition, all states should be pressed to allow more intrusive inspections under the terms of the IAEA Additional Protocol.

Even if Iran complies with its NPT commitments now, it may still choose to follow the nuclear weapons route in the future. Given the stakes, the United States must counter arguments from Iranian hard-liners who wrongly believe that nuclear weapons will enhance Iran’s prestige and counter Israel’s nuclear arsenal. To help do so, Washington should reiterate its long-standing commitment to achieve a Middle East nuclear-weapon-free zone.

Time is running out. The situation demands a new and more sophisticated U.S. strategy that increases Iran’s incentives to halt its dual-purpose nuclear projects and reinforces the view within Iran that it does not need and will not benefit from nuclear weapons.

Trust, but Don't Verify

Daryl G. Kimball

The dangers posed by today’s non-conventional weapons necessitate prompt and vigorous action to dismantle arsenals and block the transfer, stockpiling, and production of highly enriched uranium and plutonium—the fissile material needed to build nuclear weapons. U.S. leaders have long recognized that such arms control efforts must be reinforced with effective means to monitor compliance. As President Ronald Reagan told the Soviets, “Trust, but verify.”

Fittingly, the negotiation of a global, verifiable fissile material cutoff treaty (FMCT) has been a major U.S. nonproliferation priority at the Conference on Disarmament (CD) for more than a decade. But not any more.

Following a lengthy policy review, the Bush administration has adopted a new and counterproductive “trust, but don’t verify” FMCT position. Although the administration says it supports negotiations for a treaty to end the production of fissile material for weapons purposes, it has indicated it will oppose negotiations on an “effectively verifiable” treaty.

The goal in past years has been to negotiate a global treaty with an effective verification regime focused on facilities that are capable of uranium enrichment and plutonium reprocessing. This could provide high confidence that no country is secretly producing bomb-grade nuclear material for weapons.

The FMCT would reinforce the nuclear Nonproliferation Treaty (NPT) and lock in the halt on production of fissile material for weapons currently observed by the five established nuclear-weapon states: China, France, Russia, the United Kingdom, and the United States. Perhaps more significantly, a verifiable FMCT would cap the supply of bomb material available to NPT holdouts India; its nuclear rival, Pakistan; and Israel.

The U.S. policy shift is a body blow to the long-delayed FMCT talks, however. The United States wants the 65 member states at the CD to reach consensus on a new mandate for negotiations, an exceedingly difficult task that will further postpone the start of FMCT talks. The new U.S. policy is yet another shameful rejection of key disarmament commitments made at the 1995 and 2000 Review Conferences of the NPT.

According to the Bush review, an FMCT inspection program would be “so extensive that it could compromise key signatories’ core national security interests and so costly that many countries will be hesitant to accept it.” No verification system is 100 percent effective, nor is it free. But as major U.S. allies still insist, verifying such a treaty is technically feasible and politically possible, and it is in everyone’s core interests to make the treaty more than a symbolic gesture.

The additional financial cost of expanding the scope of current nuclear inspections to cap the size of the world’s arsenals is well worth the price. As recent events in Iraq, Iran, and North Korea show, when international arms inspectors have the political and legal authority to visit relevant sites and investigate suspicious findings, they can detect and deter cheating and, if necessary, help mobilize international action against violators. In many cases, the IAEA can visit and take measurements at sites and facilities about which national intelligence agencies can only raise suspicions.

So, what is really behind the reluctance to negotiate an effectively verifiable FMCT? The policy is yet another symptom of this administration’s strong allergy to multilateral arms control. It also reflects the Bush administration’s insufficient regard for the effect of Israel’s and Pakistan’s unregulated nuclear weapons programs on regional security and nonproliferation objectives. Pressing forward with a verifiable FMCT would help bring those states, along with India, into the nonproliferation mainstream and enhance efforts to ensure that other states comply with their treaty obligations.

The Pentagon has resisted FMCT negotiations altogether. Officials there fret about protecting information related to Navy programs that supply enriched uranium fuel for nuclear-powered ships, despite the fact that the FMCT would not prohibit production for such purposes.

This is not the first time the Bush administration has torpedoed verification provisions designed to improve compliance with arms control treaties. In 2001 the Bush administration blocked approval of a verification regime for the Biological Weapons Convention. In 2002 it declined to seek additional monitoring and inspection measures as part of its Strategic Offensive Reductions Treaty with Russia. Absent better verification, illicit national bioweapons programs may continue, and our knowledge about the size and security of Russia’s nuclear arsenal will be far less certain.

President George W. Bush said in February that he is committed to stopping weapons of mass destruction “at the source.” The United States cannot achieve this objective by itself or without more new and verifiable initiatives such as the FMCT. Tragically, the Bush approach on the FMCT and other nonproliferation agreements denies our nation and the international community the chance to more effectively monitor and enforce compliance with the global nonproliferation standards essential to our security.

Better Late Than Never on North Korea

Daryl G. Kimball


Of the several emerging nuclear threats in the world, the revival of North Korea’s nuclear weapons program may be the most urgent and dangerous. Since late 2002, President George W. Bush has prudently maintained that he wants a “peaceful” and “diplomatic” solution to the crisis. There are no quick or easy military options.

But U.S. diplomacy has been ineffectual. Bush’s foreign policy principals have bickered over strategy. The U.S. invasion of Iraq has only fueled North Korean leader Kim Jong Il’s security fears. Under pressure from allies anxious about North Korea’s ongoing nuclear activities, Bush has at last authorized a detailed and practical proposal. Negotiators must now get down to work and make up for lost time.

Unveiled at the fourth and latest round of multilateral talks in Beijing, the U.S. proposal is designed to reimpose a freeze of the North’s nuclear program and open the way toward verifiable dismantlement of its facilities and toward better U.S.-North Korean relations.

The U.S. plan would require North Korea to agree in writing to disclose and dismantle its programs and give it three months to seal all of its nuclear facilities. In exchange, China, Japan, Russia, and South Korea would begin supplying fuel oil to the North. Meanwhile, the United States would extend a provisional security guarantee not to attack or overthrow the regime in Pyongyang.

If North Korea then admits inspectors to key sites and allows its nuclear weapons-related facilities to be dismantled, the United States would engage in bilateral talks on removing it from the U.S. list of states sponsoring terrorism, eliminating U.S. sanctions, and providing greater international economic assistance.

The proposal represents a major shift away from the administration’s earlier and more confrontational North Korea policy. Three years ago, Bush announced he would discontinue direct talks and denounced North Korea as part of an “axis of evil.” North Korea’s secret efforts to acquire uranium-enrichment capabilities and the U.S.-led decision to cut off fuel aid worsened the situation. In late 2002, Pyongyang ejected international arms inspectors and, in January 2003, announced its withdrawal from the nuclear Nonproliferation Treaty.

Since then, North Korea has most assuredly resumed plutonium production for weapons. It could already be the world’s ninth nuclear-weapon state and become a potential exporter of nuclear arms and material.

With savvy and energetic U.S. and allied diplomacy, this nightmare scenario might still be avoided. The administration’s new proposal is a good start. The White House has at last recognized the importance of offering North Korea political and economic inducements to give up its nuclear pursuits. By offering a nonaggression pledge conditioned on further progress, the White House has given Kim an alternative to the nuclear weapons program North Korea says is necessary to deter U.S. aggression, but which would seriously destabilize the region.

There will be more difficulties ahead, and the next few weeks are critical. Bush and Secretary of State Colin Powell must fend off administration hard-liners who may try to scuttle a deal in the false hope that the Pyongyang regime will soon collapse and that its nuclear and missile programs can be contained through economic sanctions and interdictions.
In Beijing, Kim’s representatives called the U.S. offer “constructive” and asked for time to evaluate it. The North Koreans have also made their own offer: to freeze and eventually dismantle their nuclear programs if provided with energy equivalent to a quarter of their annual production. To achieve a deal they also must be more flexible and forthcoming about their nuclear activities.

Unfortunately, the Pyongyang regime still refuses to clear up charges that it is also pursuing uranium enrichment for weapons. The existence of the effort is more certain as details of Pakistani nuclear scientist Abdul Qadeer Khan’s illegal nuclear supplier network have come to light. Though it represents a less urgent weapons threat than the plutonium facilities at Yongbyon, North Korea’s still-to-be-detailed uranium-enrichment project must be eliminated. By agreeing to call it a research program, negotiators might provide North Korea a face-saving way to reveal and dismantle any uranium activities.

At the same time, the Bush administration must accelerate the pace of negotiations with North Korea by pursuing immediate follow-up discussions. Bush must also give U.S. envoy James Kelly enough room to engage in the genuine give-and-take on timelines and inspection procedures necessary to secure a deal. The more time passes without inspectors on the ground to verify a freeze of North Korea’s nuclear facilities, the more its nuclear capabilities likely increase.

With serious proposals to end North Korea’s nuclear programs finally in play, leaders in Beijing, Moscow, Seoul, and Tokyo must continue to use the six-party format to press the United States and North Korea to make tangible progress. With high-level White House attention and a genuine commitment to eliminate Pyongyang’s stated motives to go nuclear, the United States may still be able to stop a new Asian nuclear arms race before it starts.

 

 

 

 

 

 

The Nonproliferation Credibility Gap

Daryl G. Kimball


You don’t get something for nothing. More than three decades ago, the nuclear Nonproliferation Treaty (NPT) set into place one of the most important international security bargains of all time: states without nuclear weapons pledged not to acquire them, while nuclear-armed states committed to eventually give them up.

The treaty’s success depends on universal compliance with tighter rules prohibiting the spread of nuclear weapons and related technology. It also requires that nuclear-weapon states fulfill their disarmament obligations and give credible assurances to non-nuclear-weapon states that they will not be subjected to nuclear attack.

Tension regarding the mutual obligations of NPT members is nothing new. Yet, at the recently concluded Preparatory Committee meeting for the 2005 NPT Review Conference, U.S. officials pushed for greater limitations on other states while arguing the United States needs to do little or nothing more on disarmament. As a result, states-parties are more divided than ever about how to enforce the treaty, deal with the three nonsignatories (India, Israel, and Pakistan), and tighten restrictions on the availability of nuclear weapons technology.

Recall that, in 1995, the United States and the other nuclear-weapon states pledged to a set of principles and objectives on nonproliferation and disarmament. They did so in order to win an indefinite extension of the treaty. These goals were reaffirmed and refined at the 2000 NPT conference. The extension of the NPT did not imply the indefinite possession of nuclear weapons. The United States can ill-afford to abdicate its disarmament responsibilities and interests.

Rather than build broad support for a plan to strengthen the treaty in all of its aspects, Bush administration officials chose to use this NPT meeting to level a blunt critique of illicit Iranian and North Korean nuclear activities. With Iran in mind, U.S. officials called on others to support proposals to limit the sale of nuclear technologies that can be used to make bomb material.

This initiative could produce useful but hard-to-win additional limitations on non-nuclear-weapon states’ access to some forms of “peaceful” nuclear technology. Iran’s previously undeclared uranium-enrichment activities do indeed create the possibility that it intends to become the next nuclear-weapon state. There is broad agreement that Iran must fulfill its pledges to allow more intrusive nuclear inspections and make its temporary uranium-enrichment halt permanent.

But achieving these outcomes involves heavy diplomatic lifting. Nonnegotiable U.S. ultimatums, however justifiable, will not do the trick. Nor will they make it any easier for an ongoing British-French-German initiative to convince leaders in Tehran that full compliance with the NPT is in their best interest.

U.S. delegates to the NPT meeting also did their best to block discussion of further disarmament measures, including the possibility of multilateral talks on weapons of mass destruction issues in the Middle East. In an April 27 speech at the conference, Undersecretary of State for Arms Control and International Security John Bolton declared, “[W]e cannot divert attention from the violations we face by focusing on [disarmament] issues that do not exist.”

Or do they? Surely, the United States and Russia have made steady progress in dismantling and securing large portions of their Cold War nuclear stockpiles declared excess under treaties signed more than a decade ago. With the 2002 Strategic Offensive Reductions Treaty, the two states have pledged to reduce deployed strategic nuclear forces to fewer than 2,200 warheads by 2012. Nevertheless, these actions are based on decisions taken years ago and are woefully behind pace.

The situation is even worse in other areas. Talks with Russia on verification measures and tactical nuclear weapons remain on the backburner. The administration has initiated research on new types of more “usable” nuclear weapons, stiff-armed progress on the Comprehensive Test Ban Treaty, and dithered on the fissile material cutoff treaty. President George W. Bush has also approved nuclear-use policies that undercut previous commitments to nonuse of nuclear weapons against non-nuclear-weapon states in the context of the NPT.

Sensing that the Bush administration wants to erase any memory of earlier U.S. commitments to these and other disarmament commitments, leading non-nuclear-weapon states, including several U.S. allies, cried foul at the NPT meeting. Arab states continue to be frustrated by the failure to confront the reality of Israel’s nuclear weapons arsenal; perhaps as a consequence, they have said little about Iran’s transgressions. The impasse blocked agreement on next steps and even a basic agenda for next year’s Review Conference.

Although there is consensus on the need to strengthen and preserve the NPT, there must also be agreement on how to do so. In the coming months and years, the United States must pursue a more balanced and credible approach that addresses the fundamental obligations of all states. The president’s own nonproliferation proposals, the NPT’s future, and U.S. national security depend on it.


 

 

 

 

Curb Nuclear Weapons Excess

Daryl G. Kimball


More than a decade has passed since the end of the Cold War and President George H. W. Bush’s 1992 decision to end the production of new nuclear weapons. Today, U.S. military might is unrivaled. By far, its greatest security challenge is stopping the spread of nuclear weapons and reducing the likelihood that they are someday used.

Yet, as the current Bush administration rightly calls on others to forswear nuclear weapons, it continues to pursue a costly and counterproductive campaign to research and develop new, more “usable” nuclear weapons. It also wants to significantly expand U.S. capabilities to build nuclear warheads. These moves run counter to accepted international norms of nonproliferation behavior and trends in military strategy that de-emphasize nuclear weapons.

The administration’s fiscal year 2005 budget proposes $27 million for ongoing research to modify existing types of high-yield nuclear weapons to destroy deeply buried and hardened targets (the Robust Nuclear Earth Penetrator). It seeks another $9 million for unspecified research on “advanced” concepts, including new types of low-yield nuclear bombs.

The rationale for the new weapons is based on flawed assumptions and ignores physics. According to a March report from the Departments of State, Energy, and Defense to Congress on the subject, the United States’ concern for minimizing collateral damage in war diminishes the credibility of its capability and will to respond to “aggression” with nuclear weapons. By enhancing earth-penetrating capabilities and reducing yields, the argument goes, adversaries may believe than an American president might actually be willing to use nuclear weapons to take out leadership and weapons targets.

However, the notion that nuclear weapons can be developed to destroy targets with little collateral damage is highly misleading and dangerous. To contain the fallout of a relatively small, five-kiloton nuclear bomb, it would have to be detonated about 350 feet underground—nearly 10 times the depth that existing materials and force capabilities allow. Even if smaller weapons were used against suspected chemical or biological weapons sites, errors in intelligence and targeting could disperse rather than destroy deadly material.

The proposed Robust Nuclear Earth Penetrator is far larger, with a yield likely more than 100 kilotons. A 1962 nuclear test blast of the same size, detonated 635 feet below the surface, ejected 12 million tons of earth and formed a crater 320 feet deep and 1,280 feet wide.

Nuclear weapons should not be seen as simply another weapon in the vast U.S. arsenal. So long as nuclear weapons exist, their role should be limited to deterring the use of nuclear weapons by others—a mission that hardly requires a new generation of weapons.

Last year, in an effort to win support from wavering members of Congress, the administration claimed that it was only seeking money and authority to research new and modified weapons. Congress was persuaded, but decided that further work would require its explicit authorization. Assurances aside, the administration’s intention to go further is now clear. In February, the Energy Department’s five-year budget outlined a plan for further research and, if Congress allows, development of the Robust Nuclear Earth Penetrator at a cost exceeding $485 million.

As a part of its multibillion-dollar plan to modernize the U.S. nuclear weapons complex, the administration also wants a “Modern Pit Facility” to remanufacture (and possibly produce new) plutonium cores for warheads. It could cost up to $4 billion to build and $200-300 million a year to operate. Plans call for annual production levels of 125-450 plutonium pits. However, if the United States stays on track to reduce its nuclear stockpile to 3,000 warheads or less, such an enormous production capacity is unnecessary.

Although the administration claims new weapons and production capabilities are needed to reinforce the believability of U.S. nuclear threats and its ability to respond to threats, it claims this will only “slightly complicate” nonproliferation efforts. The reality is that these projects invite similar activity from former adversaries and proliferators.

Referring to the United States, Russian President Vladimir Putin said on Feb. 18, “As other countries increase the number and quality of their arms and military potential, then Russia will also need to ensure it has new-generation arms and technology.” We can expect that hard-liners in Pyongyang, Tehran, Islamabad, and New Delhi will also use new U.S. nuclear weapons work as a cynical excuse to develop or improve their own nuclear strike capabilities.

In order to curb the spread of nuclear weapons, it is vital that Congress and the president exercise greater leadership in diminishing the allure of nuclear weapons and the myth of their utility. They can start by curbing their own nuclear weapons excesses.

 

 

 

 

Act Now on Fissile Material Treaty

Daryl G. Kimball


International efforts to curb the spread and buildup of nuclear weapons arsenals greatly depend on controlling the production and stockpiles of the key ingredients for the bomb: highly enriched uranium (HEU) and plutonium. Negotiating a global agreement to cut off the production of these fissile materials for weapons purposes has long been a goal of the United States. Now, however, the Bush administration may be reversing its support for this common sense proposal.

Since the early 1990s, states at the Geneva-based Conference on Disarmament (CD) have sought to begin formal talks on a fissile material cutoff treaty (FMCT). FMCT negotiations have been stymied by China since 1999 in an attempt to gain leverage on its priority issue: a treaty for the prevention of an arms race in outer space (PAROS). Unwilling to constrain its ambitious plans for missile defense systems that could include space-based weapons, the United States has said there is no arms race in outer space and will only allow exploratory discussions on the subject.

Successive presidents of the CD and, more recently, a group of five ambassadors have tried to bridge the political differences by proposing to start negotiations on a FMCT in an ad hoc committee, as well as to simultaneously begin substantive discussions on PAROS and general discussions on nuclear disarmament.

Last August, China indicated it could agree to this formula. The United States has since balked. In November, the U.S. representative to the UN voted for a resolution supporting a FMCT but noted that the United States had, after nine years of support, initiated a “review” of the concept. In January, Assistant Secretary of State for Arms Control Steve Rademaker told Arms Control Today, “We are looking at the threshold question, does a FMCT make sense?”

From the U.S. perspective, moving ahead on FMCT negotiations is a no-brainer. A universal measure, it would reinforce the nuclear Nonproliferation Treaty (NPT) and voluntary nuclear export controls, as well as help contain the nuclear programs of the three NPT holdout states: India, Israel, and Pakistan.

The five major nuclear-weapon states—China, France, Russia, the United Kingdom, and the United States—have all indicated they are no longer producing fissile material for weapons purposes. On the other hand, India and Pakistan have active production programs for both HEU and plutonium, and it is likely that their stocks of weapon-grade material are increasing. It is not clear whether Israel is continuing to produce fissile material for weapons purposes. Under the guise of civilian nuclear power research, other states, including Iran, have built facilities capable of producing fissile material for weapons.

A FMCT and its additional verification system would augment existing efforts to detect and deter clandestine nuclear bomb production and acquisition efforts. In addition, FMCT talks could also produce confidence-building declarations from all states with nuclear weapons and/or HEU or plutonium stockpiles, as well as associated fabrication, reprocessing, and storage facilities.

There is no practical reason for the White House not to support initiation of FMCT negotiations under the compromise formulation. So far, however, it has not. In his February 11 speech outlining steps to restrict access to nuclear bomb material and related technologies, President George W. Bush failed even to mention a FMCT.

Sen. Joseph Biden (D-Del.) has called a FMCT “an essential supplement” to the president’s proposals. In recent weeks, the director-general of the International Atomic Energy Agency and key U.S. allies have also urged the United States to support FMCT negotiations. Though some states may not be enthusiastic, no other nation has registered its opposition.

The absence of continued strong support for a FMCT would doubtless undermine the legitimacy of other, vital U.S. nonproliferation objectives. Completion of a FMCT by 2005 and informal discussions on nuclear disarmament at the CD were two of 13 action steps to which all NPT states-parties committed themselves in May 2000. Yet, since taking office, the Bush administration has undermined almost every one of those measures and has sought to keep its nuclear weapons research, production, testing, and deployment options open.

In his speech about nuclear proliferation challenges, Bush cautioned that rising awareness and condemnation “means little unless it is translated into action.” The president would do well to heed his own advice and seize the opportunity to begin negotiations on a verifiable, global ban on the production of fissile materials for weapons.

 

 

 

 

 

 

Broaden the Nonproliferation Campaign

Daryl G. Kimball


Following last month’s disclosures of illicit Pakistani nuclear assistance to Libya and Iran, President George W. Bush outlined new measures to restrict the trade of key equipment that can be used to make bomb material. However, Bush’s proposals, as well as his overall nonproliferation strategy, are too limited and contradictory to address current and future nuclear weapons dangers adequately.

The nuclear Nonproliferation Treaty (NPT) guarantees non-nuclear-weapon states the right to nuclear technology for energy and other nonmilitary purposes under international safeguards. Decades of nuclear trade, however, have led to the broad diffusion of uranium-enrichment and spent-fuel reprocessing technologies, which can also be used to make bomb-grade uranium and plutonium. Some states, such as Iran and North Korea, have abused the system and acquired the means to produce these fissile materials.

In response, Bush has proposed that the 40-member Nuclear Suppliers Group (NSG) not sell enrichment and reprocessing equipment to any state that does not already have the capability. He has also proposed that these nuclear supplier states not provide equipment to nations that have failed to agree to a tougher set of International Atomic Energy Agency (IAEA) inspections. This proposal is mostly designed to limit Iran’s nuclear capabilities.

Although a push for new and tighter nuclear export restrictions through the NSG is long overdue, long-term success requires the application of the same standards to all states and more aggressive efforts to eliminate other means of fissile material production. Several important, additional steps should be considered.

First, those states currently without enrichment or reprocessing capabilities, such as Brazil and Iran, will strongly resist efforts to deny them access to such technologies. If these and other states are to be expected to agree to tougher restrictions, their access to low-enriched uranium fuel for light-water reactors (LWRs) will need to be guaranteed. The solution requires the creation of a long-term, multinational fuel supply that would make national possession of uranium-enrichment plants unneeded and uneconomical.

This could be accomplished in a number of ways, each of which presents challenges and requires more visionary U.S. leadership. As IAEA Director-General Mohamed ElBaradei has suggested, one approach is to develop a new protocol to the NPT that would bar enrichment and reprocessing capabilities but continue to guarantee access to nuclear fuel supplies and regulate spent-fuel disposition under the supervision of the IAEA. Another option is low-cost access to fuel for LWRs through market-based consortia.

Second, the Bush formula would allow significant nuclear suppliers not part of the NSG, such as Pakistan, to continue to peddle their wares. The recent disclosures about transfers of uranium and uranium-enrichment equipment from the Khan Research Lab warrant, at the very least, revisions to Pakistan’s lax export-control system.

Third, Bush should immediately quash two ongoing Department of Energy “nuclear research” programs that actually promote the spread of reprocessing technology and the means to produce plutonium. Spent-fuel reprocessing is an uneconomical, polluting, and unnecessary way to harness nuclear energy. Currently, global stockpiles of separated civilian plutonium exceed 195 tonnes and pose a long-term proliferation threat.

Fourth, the United States should reaffirm its long-standing support for negotiation of a fissile material cutoff treaty. The treaty would verifiably halt the production of highly enriched uranium and plutonium for weapons by all states; establish baseline information on global stockpiles; and help bring India, Israel, and Pakistan into the nonproliferation system. A shift in China’s position opens the way to revive the long-delayed negotiation, but now the Bush administration has announced it is reviewing the U.S. position.

Finally, Bush’s call for others to abide by tougher nonproliferation rules rings hollow as his administration continues to reject meaningful limits on U.S. nuclear weapons capabilities. Bush remains opposed to the Comprehensive Test Ban Treaty and to verifiably dismantling excessive U.S. and Russian nuclear bombs and missiles. Worse still, the administration has outlined plans for developing new earth-penetrating nuclear weapons at cost of nearly a half-billion dollars over the next five years. Not only are such weapons impractical and unnecessary, but they invite hard-liners in other states to keep their nuclear weapons options open.

The evolving nature of the nuclear threat requires a more comprehensive and robust global nonproliferation strategy than the work in progress outlined by Bush. In the end, it requires more than just pressure on a few of the nuclear “have-nots”—it requires greater restraint and leadership from the nuclear “haves.”

 

 

 

 

 

Reality Check: Libya and Iran

Daryl G. Kimball


In the past month, two states long suspected of pursuing weapons of mass destruction (WMD)—Iran and Libya—have been persuaded to allow intrusive international inspections. Although some in the Bush administration believe the threat of pre-emptive war forced the issue, the reality is different and more complex. Rather, each case demonstrates the importance of preventive diplomacy, international nonproliferation treaties and inspections, and economic sanctions and incentives designed to compel compliance.

Last year, special International Atomic Energy Agency (IAEA) inspections revealed that Iran has conducted secret nuclear activities with bomb-making potential. The Bush administration and a tough IAEA report kept the matter on the front burner. Yet, it was French, German, and British diplomats who ultimately persuaded Iranian leaders to agree to an additional protocol allowing tougher IAEA inspections and temporarily stop uranium enrichment activities. In return, the Europeans are offering closer technical and economic ties.

Libya went even further. President Moammar Gaddafi announced December 19 that Libya would verifiably dismantle its biological and chemical weapons capabilities. Gaddafi also agreed to eliminate Libya’s aging Scud missile force, as well as halt suspected nuclear weapons-related activities.

Libya’s announcement is clearly part of a broader effort to end years of suffocating sanctions for its past support for terrorism and WMD ambitions. Early last year, Libya finally settled claims concerning its role in the 1988 bombing of Pan Am flight 103, prompting the United Nations to lift sanctions. British and U.S. officials deserve credit for closing the deal, but Gaddafi initially contacted officials in London with the hope that discarding his WMD programs might lead to better relations with the United States and Europe.

Both states must now follow through on their important nonproliferation commitments by fully and promptly cooperating with IAEA inspectors. Iran should be pressed further. Even with strict compliance with the nuclear Nonproliferation Treaty (NPT), Iran might someday withdraw from the treaty and build nuclear weapons. To remove doubts about the peaceful purposes of its nuclear program, Iran should permanently freeze uranium-enrichment activities, which could be used to make bomb material.

Verifying Libya’s pledge to end its biological and chemical weapons capabilities and ballistic missile work will require a more creative approach. There is no standing inspectorate for ballistic missile control and, due to U.S. opposition, there is no verification system for the 1972 Biological Weapon Convention. Libya has not yet signed the 1997 Chemical Weapons Convention, which allows for on-site inspections. The UN Security Council should consider giving the job to the UN Monitoring and Verification Commission, which was created to deal with the same types of weapons in Iraq.

The United States should respond with positive measures, including the lifting of remaining WMD-related sanctions, if these states demonstrate that they have indeed chosen to forswear these dangerous, destabilizing, and expensive weapons. Such a course would make it clear to others that compliance with the nonproliferation regime is more beneficial to their security than the pursuit of nuclear, chemical, or biological weapons.

At the same time, U.S. and European policymakers must address weaknesses in their nonproliferation strategies, highlighted by the Iranian and Libyan cases. The IAEA’s investigations will certainly show that the Iranian and Libyan nuclear programs received vital technical assistance from other states, including Pakistan.

Unfortunately, past and current U.S. administrations have chosen not to deal with all proliferators with the same vigor. As Undersecretary of State John Bolton boldly stated to Arms Control Today in a November 14 interview, “There are unquestionably states that are not within existing treaty regimes that possess weapons of mass destruction legitimately. We’re not trying to have a policy that attempts to cover each and every one of those circumstances.” The United States can no longer afford to focus on the WMD programs of its adversaries while ignoring the proliferation behavior of its friends and allies, especially the three nuclear-weapon states that are not NPT members: India, Israel, and Pakistan.

The international community should build on recent progress in Iran and Libya with energetic diplomatic efforts in other areas of tension around the globe. The United States and the international community must also work harder to achieve a more open, transparent, and secure world through tougher inspections everywhere. By promptly ratifying the IAEA Additional Protocol, reducing the role of nuclear weapons in its own security policy, and following through with its own NPT disarmament commitments, the United States can help encourage others to join the protocol and turn away from nuclear weapons.

 

 

 


Senators Carl Levin (D-Mich.) and Jack Reed (D-R.I.) are members of the Senate Armed
Services Committee. Levin is the committee’s ranking Democrat.

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