The Canary in the Nuclear Submarine: Assessing the Nonproliferation Risk of the Naval Nuclear Propulsion Loophole

ABSTRACT

The Treaty on the Non-Proliferation of Nuclear Weapons (NPT) allows states to exempt nuclear material from international safeguards for use in nuclear submarine programs. This material, however, could be diverted for nuclear weapons purposes without the knowledge of inspectors, creating a potentially dangerous loophole in the treaty. This article argues that exercising that loophole today would amount to admitting a nuclear weapon program, making it a particularly poor pathway to a weapon for a potential proliferant. Still, if states like Brazil ultimately exempt nuclear material from safeguards for a nuclear submarine effort, they could set a dangerous precedent that makes it easier for others to use the loophole as a route to a nuclear weapon capability. There are several policy options available to mitigate the damage of such a precedent; most promising is the prospect of a voluntary safeguards arrangement that would allow international inspectors to keep an eye on nuclear material even after it has been dedicated to a naval nuclear propulsion program.     

Deferred verification: the role of new verification technologies and approaches

ABSTRACT

Researchers have recently proposed a new approach to nuclear-arms-control verification, dubbed “deferred verification.” The concept forgoes inspections at sensitive nuclear sites and of nuclear weapons or components in classified form. To implement this concept, a state first divides its nuclear program into a closed segment and an open segment. The total fissile-material inventory in the closed segment, which includes the weapon complex, is known and declared with very high accuracy. Essentially no inspections take place in the closed segment. In contrast, inspectors have access to the open segment, which includes in particular the civilian nuclear sector. The fissile-material inventory in the open segment is known with less accuracy, but uncertainties can be reduced over time using nuclear-archaeology methods. Deferred verification relies primarily on established safeguards techniques and avoids many unresolved verification challenges, such as the need for information barriers for warhead confirmation measurements. At the same time, deferred verification faces some unique challenges. Here, we explore some of these challenges and offer possible solutions; to do so, we examine possible noncompliance strategies in which a state would seek to withhold a higher-than-declared inventory.     

ADVANCING THE GOALS OF NPT ARTICLE VI

International technical cooperation on issues relevant to the challenges of nuclear disarmament can demonstrate commitment to obligations under Article VI of the Treaty on the Non-Proliferation of Nuclear Weapons, strengthen the security of fissile materials and weapons, and develop technical approaches to support more ambitious disarmament activities in the future. Including non-nuclear weapon states would ensure that their views are taken into account and would invest them in developing solutions to key challenges. This article discusses three areas for technical cooperation that would build on past activities and that could produce such benefits as improved protection, control, and accounting of nuclear weapons and fissile material; enhanced transparency for nuclear weapon complexes; and mechanisms for international management of sensitive civilian nuclear facilities. International cooperation in each of these areas could provide a technical basis for pursuing possible future disarmament negotiations and substantively demonstrate commitment to Article VI.     

Nuclear Subsidies and Proliferation: Clarifying the Link

ABSTRACT

In March 2015, the South Australian state government established a royal commission to investigate the financial, social, technical, diplomatic, and nonproliferation benefits and risks of expanding its nuclear industry, including activities related to uranium mining; enriching, reprocessing, and fabricating nuclear fuels for both domestic use and export; producing nuclear power; and storing radiological waste, including foreign spent reactor fuel. Given its enormous uranium reserves and current mining activities, some Australians have argued that Australia could benefit financially by expanding the mining sector and by adding value to its uranium exports by enriching the material and fabricating it into reactor fuel assemblies. Others have maintained that Australia can realize significant economic benefits by recycling and storing foreign spent fuel and producing carbon-free nuclear power. In the end, the commission recommended that Australia consider opening up a high-level waste repository to take in foreign spent fuel. It did not recommend any other nuclear activities at this time. The following viewpoint is based on testimony I delivered to the commission on the nuclear weapon proliferation implications of the proposed activities. If Australia wants to avoid the temptation of selling nuclear goods to states that might use these goods to make bombs, it should only consider new nuclear activities that can be entirely financed by the private sector and turn a profit without having to resort to foreign sales. This policy would also enable Australia to set an important, new international nonproliferation standard.     

Uranium yellowcake trafficking incidents in Africa

The perpetuation of an otherwise astute fissile material safeguards model by the current non-proliferation regime raises a number of concerns, not least the efficacy of the approach in reducing clandestine weapon developments and the nuclear terrorism threat. Mindful of potential shifts in illicit nuclear material and weapon acquisition, following an excessive focus on fissile material safeguards and the proliferation of nuclear weapon technology, this article uses proliferation trend and scenario analysis in a bid to identify potential proliferation threats and non-proliferation opportunities. The results of the article's assessment of reported incidents (1992–2013) involving theft, unauthorised possession, and attempts to smuggle or sell highly enriched uranium (HEU), plutonium, low-enriched uranium (LEU), natural uranium and uranium yellowcake reveal a decline in occurrences involving fissile material but an increase in uranium yellowcake incidents, particularly in Africa. Presumptions that yellowcake may have provided the newest threat to clandestine weapon developments and nuclear terrorism wane amid concerns over possible biases in reporting, scepticism over an organised and demand-driven nuclear black market, and the difficulties of non-state actors’ development of crude nuclear weapons off the tedious yellowcake conversion-enrichment-fabrication pathway. To secure Africa's uranium yellowcake from potential proliferators, the article proposes concerted domestic, regional and multilateral non-proliferation efforts.     

THE BRAZILIAN WAY

This article examines the positions held by Brazil under the administration of Luiz Inácio Lula da Silva (2003–present) on nuclear nonproliferation, arms control, and disarmament regimes and on contentious issues in those areas. Under Lula's government, Brazil has wanted to mediate between nuclear weapon and non-nuclear weapon states to consolidate its position as a strong negotiator and to benefit from the possible gains of this position in terms of greater participation in international institutions. It has also wanted to pressure nuclear weapon states to fulfill their disarmament obligations in order to reduce asymmetries in its relations with powerful nuclear weapon countries. At the same time, Brazil has tried to preserve its autonomy and flexibility to protect commercial secrets and preserve national security in relation to its own nuclear program.     

Beyond Iran: Containing Nuclear Development in the Middle East

ABSTRACT

Several states in the Middle East have noted their interest in nuclear energy programs, but current cost and timeline estimates understate the difficulties that these states will face. A state-level analysis of nuclear development capacities in Saudi Arabia, Egypt, Jordan, Turkey, and the United Arab Emirates suggests that building nuclear infrastructure in the region will, in fact, be a lengthy and expensive endeavor, due to concerns such as export constraints, public opposition, a lack of human resources, and high overhead costs. This has implications for nuclear weapon nonproliferation: first, fears that these developing nuclear energy capabilities may facilitate possible weapon proliferation are premature, and second, there is time to ensure that any burgeoning nuclear infrastructure in the region remains safe and civilian in nature.     

Confronting the “Perpetual Menace to Human Security”

Nuclear weapon states historically have attached great secrecy to their nuclear weapon and fissile material production programs and stockpiles, despite warnings that this would fuel fears, handicap informed debate and decision making, and drive arms races. As evidenced by the “Action Plan on Nuclear Disarmament” agreed upon at the 2010 Treaty on the Non-Proliferation of Nuclear Weapons (NPT) Review Conference, however, the international community now sees greater transparency about nuclear weapon and fissile material stocks as necessary for enabling and monitoring progress toward nuclear disarmament. To support this effort, the International Panel on Fissile Materials has proposed a step-by-step program for weapon states to declare their inventories, production histories, and disposition of nuclear warheads and fissile materials, and to set up joint projects to develop methods for verifying these declarations. This openness initiative is described here, and could be adopted at the 2015 NPT Review Conference, laying a basis for negotiating verifiable deep reductions in nuclear arsenals and their eventual elimination.     

基于海军武器装备体系结构视图的能力评估研究

文章探讨了基于海军武器装备体系结构视图的能力评估框架,形成了海军武器装备体系结构视图产品与能力评估的映射关系。首先概述了海军武器装备体系能力及其视图的概念及内涵,然后分析了能力视图与其它视图间的映射关系,构建了由六个能力视图产品为主组成的海军武器装备体系能力视图体系,最后提出一个基于海军武器装备体系结构视图的体系能力评价框架,为海军武器装备体系能力评估的建模方法研究提供了技术基础。     

FACILITATING NUCLEAR DISARMAMENT: Verified Declarations of Fissile Material Stocks and Production

Unprecedented interest in seeking progress toward nuclear disarmament exists today; even some nuclear weapon states are looking for new ways to strengthen this process. National declarations of fissile material holdings—highly enriched uranium and plutonium—could play an important role in supporting this effort, facilitating not only transparency but also the irreversibility of the process. This article discusses what kind of content such declarations could have in order to be meaningful and effective, the sequence of data on fissile material holdings that states might release, and some of the challenges to be expected in reconstructing historic fissile material production; it also summarizes current attitudes of weapon states toward making such declarations. Initial declarations can be valuable as confidence-building measures, but better and more background data are necessary if declarations are to serve as the groundwork for deeper cuts in the nuclear arsenals. A robust verification approach would ultimately require inspectors to have access to fissile material production and storage sites. The methods and tools of nuclear forensic analysis—in this context also dubbed nuclear archaeology—would be a key element of this process. This article discusses the capabilities and limitations of potential approaches to verifying declarations of historic production of plutonium and highly enriched uranium; it also identifies and discusses opportunities for further research and development.     

VISIONS OF FISSION

For many years, non-nuclear weapons states have sought binding commitments from nuclear armed states that they would not be the victim of either the threat or use of nuclear weapons—so-called negative security assurances (NSAs). The nuclear weapon states have traditionally resisted granting such unconditional NSAs. Recent U.S. efforts to use nuclear deterrence against the acquisition and use by other states of chemical, biological and radiological weapons, however, have further exacerbated this divide. This article analyzes the historical development of NSAs and contrasts U.S. commitments not to use nuclear weapons with the empirical realities of current U.S. nuclear weapons employment doctrines. The authors conclude that NSAs are most likely to be issued as unilateral declarations and that such pledges are the worst possible manner in which to handle the issue of security assurance.     

海上编队信息系统的分等级安全防护体系

海上编队信息系统的安全防护能力,是确保系统稳定可靠和安全,确保作战指挥顺畅和信息安全,确保诸兵力协同作战时信息保密共享、信息安全利用、武器可靠共用的重要前提。海上编队信息系统的安全问题是一个系统工程,必须首先从系统体系结构上进行整体考虑。本文遵循深度防御、分等级防护和综合防范思想,确定了海上编队信息系统安全域划分原则,构建了分等级安全防护体系结构,为未来海上编队信息系统的分等级安全防护提供了指导和依据。     

POTENTIAL PROLIFERATION POINTERS FROM THE PAST: Lessons from the British Nuclear Weapons Program, 1952–69

Becoming a nuclear weapon state and sustaining a militarily credible nuclear weapons capability is far from trivial, especially for medium powers. Such a capability is demonstrated by much more than firing a first test or acquiring significant quantities of fissile material; capability is indicated by factors including weaponization, delivery of weapons, reliability and effectiveness of weapons and their delivery systems, fissile material availability, and nuclear and non-nuclear testing. Files in the British National Archives shed considerable light on the problems faced by the nuclear weapon program of the United Kingdom from 1952 through the late 1960s. The question is whether this experience is unique or if it instead offers insights into the potential problems faced by, or facing, other medium or aspiring nuclear weapon states. The proliferation-related topics highlighted include: fissile material production, nuclear testing, the first weapon, weapon delivery rates, non-nuclear testing, delivery platform problems, and long-term maintenance and capability sustainability. Further research could provide clearer insights.     

海上编队信息系统安全域防护策略

增强编队信息系统的安全防护能力,是确保作战指挥顺畅和军事信息安全,确保诸兵力协同作战时信息保密共享、信息综合安全利用、武器可靠共用的重要手段。针对海上编队信息系统的安全问题,遵循深度防御、分等级防护和综合防范思想,提出基于安全域划分的安全防护体系结构,在此基础上研究了安全域内部防护策略、安全域间安全防护策略以及安全域间的信息流控制技术,为未来编队信息系统的分等级安全防护提供了指导和依据。     

Comprehensive Prohibition of Nuclear Weapons: An Emerging International Norm?

ABSTRACT

There have been calls for the abolition of nuclear weapons from the day they were invented. Over the last fifteen years, some indications can be found that such calls have been getting louder, among them Barack Obama's famous 2009 speech in Prague. In this article, we investigate if support for a comprehensive norm that would prohibit development, possession, and use of nuclear weapons is really growing. To assess the current status of that norm, we use the model of a “norm life cycle,” developed by Martha Finnemore and Kathryn Sikkink. We then analyze 6,545 diplomatic statements from the review process of the Treaty on the Non-Proliferation of Nuclear Weapons as well as from the UN General Assembly First Committee on Disarmament and International Security, covering the years 2000 to 2013. The evidence shows that a comprehensive prohibition can be considered an emerging international norm that finds growing support among states without nuclear weapons and nuclear weapon states alike. Only a core group of states invoke the norm consistently, however. This leads us to conclude that the “tipping point” of the life cycle, at which adherence to a new norm starts to spread rapidly, has yet to be reached.     

EDITOR'S NOTE

The Nonproliferation Review (NPR) recently interviewed Ambassador Sergio de Queiroz Duarte of Brazil, who presided over the 2005 Seventh Review Conference of the Treaty on the Non-Proliferation of Nuclear Weapons (NPT). Ambassador Duarte discussed his views on the outcome of the conference and the future of the treaty. He provided NPR with valuable insights into the outcome of the conference and also shared his thoughts on some of the most pressing issues confronting the NPT today, including the Middle East, nuclear terrorism, elimination of the threat of highly enriched uranium in the civilian nuclear sector, proposals to limit access to the nuclear fuel cycle, nuclear disarmament, and negative security assurances. Blaming the failed conference on a general lack of political commitment among states parties and their unwillingness to negotiate common solutions, Ambassador Duarte stressed that “the conference should face squarely its own failure without my attempting to disguise or sugarcoat the deep differences of view, which must be resolved with courage and determination by the states parties if they want the treaty to remain effective.”?He emphasized that if states fail to act on their overriding interest in upholding the NPT, especially if states parties continue to ignore or disregard their nonproliferation and nuclear disarmament obligations, some states might come to believe that their security interests are no longer served by the treaty. The future prospects of the NPT would then “look dire indeed.”     

NUCLEAR ISLANDS

Current International Atomic Energy Agency safeguards do not provide adequate protection against the diversion to military use of materials or technology from certain types of sensitive nuclear fuel cycle facilities. In view of highly enriched uranium's relatively greater ease of use as a nuclear explosive material than plutonium and the significant diseconomies of commercial spent fuel reprocessing, this article focuses on the need for improved international controls over uranium enrichment facilities as the proximate justification for creation of an International Nuclear Fuel Cycle Association (INFCA). In principle, the proposal is equally applicable to alleviating the proliferation concerns provoked by nuclear fuel reprocessing plants and other sensitive nuclear fuel cycle facilities. The INFCA would provide significantly increased nonproliferation assurance to its member states and the wider international community by holding long-term leasehold contracts to operate secure restricted zones containing such sensitive nuclear facilities.     

CONTRIBUTORS

ABSTRACT

Narratives about Brazil's nuclear program are distorted by supporters and critics alike. In Brazil, the national nuclear infrastructure is undergoing a period of expansion, with plans to build new nuclear power plants and industrial-scale fuel production facilities. While Brazil's leaders herald the nuclear sector as a triumph for indigenous science and technology, foreigners view the nuclear program as a dangerous legacy of the military regime. This discrepancy becomes even more apparent in discussions about the ongoing construction of Brazil's first nuclear powered submarine. Brazil's military touts the submarine as a symbol of political status, economic growth, and military might. But from abroad, the military's involvement in nuclear development is considered unnecessary, worrisome, and even irresponsible. These narratives—often incomplete or selective—have polarized discussions about Brazil's nuclear submarine program and caused considerable political antagonism during safeguards negotiations. This article works to dispel myths, highlight legitimate concerns, and explain historical perspectives that shed light on some difficulties that can be anticipated in future negotiations.     

RUSSIAN NAVAL NUCLEAR FUEL AND REACTORS

Russian naval nuclear fuel and reactors pose both proliferation and environmental threats, ranging from the possible theft of highly enriched uranium fuel to the radioactive contamination of the environment, whether due to accident, neglect, or sabotage. Current conditions at Russian naval bases, together with a history of accidents and incidents involving Russia's nuclear fleet, make a convincing case for the large-scale assistance that the G8 is now providing to improve the safety and security of Russian naval reactors and fuel. However, virtually no data has been released to allow accurate, reliable, and independent analysis of reactor and fuel properties, risking misguided international efforts to assist in the areas of nuclear cleanup, nonproliferation, and security. This article identifies and assesses relevant properties and developments related to reactor and fuel design, provides a comprehensive presentation of Russian nuclear naval technologies, and examines technological trends in the context of proliferation and environmental security.     

The stability of the nuclear nonproliferation norm: a critique of norm-contestation theory

This article argues that the nuclear nonproliferation norm (NNPN) is a social fact with a relatively independent life of its own and that it has a powerful impact on the behavior of both nuclear-weapon states (NWS) and non-nuclear-weapon states (NNWS). It challenges the application of critical constructivist research on norms to the NNPN and the idea that its legitimacy and structural power depend on contestation “all the way down.” State and non-state actors play an important role in explaining the dynamics of the NNPN, but agential constructivism runs the danger of “throwing the baby out with the bath water,” neglecting the structural impact of the NNPN on state behavior. The article examines the limitations of norm-contestation theory, arguing that some norms are more resistant to contestation than others. The NNPN is more difficult to contest than new norms (such as the Responsibility to Protect) because it is rooted in fifty years of nonproliferation nuclear diplomacy. The US-India nuclear deal is not a case of “norm change” but a violation of the NNPN. The “core” of the NNPN has not changed since the US-India nuclear deal. The conflict confronting NWS and NNWS is about the implementation of “type 2” norms (organizing principles) and “type 3” norms (standardized procedures), and not about the “hard core” of the NNPN.