The Power of the NPT: International Norms and Ukraine's Nuclear Disarmament

ABSTRACT

There is a lingering disagreement among scholars on how the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) affects nonproliferation and disarmament outcomes. Drawing on constructivist scholarship on international norms, this article examines the extent of the NPT's effect in the case of Ukraine's nuclear disarmament. In the wake of the Soviet Union's collapse, Ukraine found itself host to the world's third largest nuclear arsenal. Despite Ukraine's initial commitment to become a non-nuclear state, it proceeded along a difficult path toward NPT accession. Most controversial and directly at odds with the NPT was Ukraine's claim to ownership of its nuclear inheritance as a successor state of the Soviet Union. This article argues that, while much domestic discourse about the fate of these nuclear weapons was embedded in the negotiation of Ukraine's new identity as a sovereign state vis-à-vis Russia and the West, the NPT played an important, structural role by outlining a separate normative space for nuclear weapons and providing the grammar of denuclearization with which Ukraine's decision makers had to grapple.     

Exploiting the Challenges to Bioweapons Development

ABSTRACT

Widespread and often exaggerated generalizations about the global spread weapons of mass destruction (WMDs) have proven to be not only misleading and technologically naïve, but also unhelpful in formulating effective policies to counter their threat. The new book by George Mason University's Sonia Ben Ouagrham-Gormley dispels the popular narrative that governments and terror groups can easily—and inevitably will—develop WMDs, particularly biological weapons, by exploring the complex external and internal conditions that such programs require, as demonstrated by the Cold War-era biological weapon programs of the superpowers. This empirically grounded and realistic assessment of how states try—and often fail—to develop such programs offers a more reliable basis to craft realistic counterproliferation policies that can elicit international support.     

MIDDLE EAST NONPROLIFERATION

The Middle East is a crucial region for the global nonproliferation regime. In 2010, the state parties to the Treaty on the Non-Proliferation of Nuclear Weapons proposed a conference on a Middle East Weapons of Mass Destruction-Free Zone. The nuclear weapon-free zone model, on which this idea builds, has achieved important results in other regions, but faces especially stark challenges in the Middle East. However, the attempt to apply the boldly imaginative zone approach to the Middle East holds promise for building a more inclusive dialogue on nonproliferation and regional security.     

NONPROLIFERATION POLICY CROSSROADS:

On October 1, 2008, Congress enacted a proposal that originated with President George W. Bush in 2005 to approve an unprecedented nuclear trade pact with India by removing a central pillar of US nonproliferation policy. Despite the numerous political challenges confronting the Bush administration, the initiative won strong bipartisan support, including votes from Democratic Senators Joseph Biden, Hillary Clinton, and Barack Obama. The four-year struggle to pass the controversial US-India nuclear trade agreement offers an exceptionally valuable case study. It demonstrates a classic tradeoff between the pursuit of broad multilateral goals such as nuclear nonproliferation and advancement of a specific bilateral relationship. It reveals enduring fault lines in executive branch relations with Congress. It vividly portrays challenges confronting proponents of a strong nonproliferation regime. This article is based on an analysis of the negotiating record and congressional deliberations, including interviews with key participants. It assesses the lessons learned and focuses on three principal questions: how did the agreement seek to advance US national security interests?; what were the essential elements of the prolonged state-of-the-art lobbying campaign to win approval from skeptics in Congress?; and what are the agreement's actual benefits—and costs—to future US nonproliferation efforts?     

The Problem of Weak Nuclear States

Governments are increasingly recognizing the problem posed by internally weak nuclear-capable states. The problem, however, is under-theorized. This article brings together literature on sovereignty and international order, the nonproliferation regime, and weak states, and introduces new concepts to provide a more structured understanding of this problem. Insight comes from focusing attention on the function and governance of two nuclear estates (termed the production and operational estates), and on their resilience to decay and disorder occurring within the state and society. Drawing on empirical observation, the authors suggest a typology of weakness in nuclear states, involving state fragmentation typified by the former Soviet Union, the “hard weak state” typified by North Korea, and the internally conflicted state typified by Pakistan. Although these types give rise to distinctive difficulties, their alleviation depends heavily on the maintenance of internal authority within the state and estates, the presence or absence of cooperative relations, and the international regulatory framework's vitality.     

Icons Off the Mark

In two landmark articles, longtime scholars Kenneth N. Waltz and Thomas C. Schelling have re-emphasized the utility of nuclear deterrence over nuclear nonproliferation (Waltz) and nuclear disarmament (Schelling). While the thrust of the articles is seemingly different, both are rooted in the same intellectual ground: an epistemology that assumes problem-free inferences, drawn from past experiences, are applicable in future scenarios; a foundational rooting in strategic rationality that entangles them in unsolvable contradictions concerning comparable risks of different nuclear constellations, namely deterrence versus proliferation and disarmament; and a bias in framing the empirical record that makes nuclear deterrence more conducive to security than nuclear disarmament. The common normative-practical denominator, then, is to let a nuclear weapon-free world appear both less desirable and less feasible than it might actually be.     

Deterrence in the Gulf War

A recently published collection of captured Iraqi records offers an opportunity to better understand Saddam Hussein's perception of US and Israeli deterrence signals, affording innovative insights into the reasons behind Iraq's restraint from using weapons of mass destruction against Israeli targets during the 1991 Gulf War. This article tests a wide range of suggested hypotheses, and suggests that US and Israeli deterrence played only a minimal role in dissuading Iraqi use of WMD. The article concludes with some thoughts on the practical implications, particularly on the effectiveness of a “no-first-use” nuclear policy.     

THE G8 GLOBAL PARTNERSHIP

ABSTRACT

Since the 1990s, the group of stakeholders working to combat biological weapons (BW) proliferation has broadened to include new actors who have not traditionally focused on security issues, including organizations from the public health sector, researchers in the life sciences, and the biosafety community. This has had significant benefits for the Biological and Toxin Weapons Convention (BWC) and the arms control establishment more broadly. However, the BWC's agenda has become increasingly dominated by issues of international health and global health security. By focusing solely on response strategies, the United States and other interested parties risk losing sight of other important elements of a counter-BW strategy, including deterrence and prevention. Focusing on public health-related issues to the exclusion of more traditional security matters puts the nonproliferation regime at risk, because it limits the amount of time that stakeholders have available to grapple with the critical questions facing the BWC and the biological weapons nonproliferation establishment—questions that must be answered if the regime is to survive.     

CHINA AND THE U.S. BEYOND THE KOREAN PENINSULA

China-U.S. cooperation over the most difficult security problem in Northeast Asia—the North Korean nuclear issue—in essence projects its bigger power game amid the tectonic shifts of Asian geopolitics. The nuclear issue affords a test case to gauge the future posture of China and the United States in East Asia and their partnership in that conflict-prone region. Approaches to resolving this issue must take into account the geopolitical realignment of Asia, Washington's reorientation of relations with its Asian allies, and China's rise as an influential regional player and the subsequent regional response. However, the long-standing mistrust between China and the United States is contributing to a lack of substantial progress in Korean nonproliferation efforts. The declared nuclear test by Pyongyang further put the denuclearization cooperation between China and the Unites States on the line. China-U.S. cooperation in denuclearizing Pyongyang may either produce lasting stability for the region or create ‘‘collateral damage,’’ with the North Korean issue paling in comparison.     

THE NUCLEAR TABOO: THE UNITED STATES AND THE NON-USE OF NUCLEAR WEAPONS SINCE 1945

Uranium: War, Energy and the Rock That Shaped the World, by Tom Zoellner. VikingPenguin, 2009. 337 pages, $26.95.

Plutonium: A History of the World's Most Dangerous Element, by Jeremy Bernstein.Joseph Henry Press, 2007. 194 pages, $27.95.