Getting to Zero: Interview with Gareth Evans, Co-Chair of the International Nuclear Non-Proliferation Disarmament Commission
April 2009, Arms Control Association
Gareth Evans serves as co-chair of the International Nuclear Non-Proliferation and Disarmament Commission, an initiative sponsored by Australia and Japan aimed at providing recommendations for strengthening the nuclear Nonproliferation Treaty (NPT), reinvigorating efforts to halt nuclear nonproliferation, and promoting nuclear disarmament. Evans has held a long career in international security and arms control issues, as Australia's foreign minister during 1988-1996 and as the current president and chief executive officer of the International Crisis Group, a position he has held since 2000. Arms Control Today met with Evans Feb. 12 to discuss the work of the commission and his perspective on the issues it will be addressing.
ACT: Regarding the work of the International Nuclear Non-Proliferation and Disarmament Commission, its goal is to "reenergize high-level political discussion about the elimination of nuclear weapons." About 10 years ago, you helped initiate the Canberra Commission, which sought to take the opportunity provided by the end of the Cold War to accomplish a similar goal.[i] What opportunities do you see today to re-energize this debate 10 years after that commission's work?
Evans: The last 10 years has been a period in which we have been sleepwalking as an international community, with multiple things going rather badly wrong. Obviously, the India-Pakistan breakout, the Iran and North Korea issues, the failure of the 2005 Nuclear Nonproliferation Treaty (NPT) review conference, the failure of the 2005 World Summit, immobility in the Conference on Disarmament.[ii] It has been a desolate decade.
The opportunity to move things forward is intimately bound up with the new U.S. administration and the sense of confidence and momentum that hopefully that will generate, and is already generating, around the world, combined with the really significant contribution intellectually that has been made by the Gang of Four simply by putting out a hard-hitting case for zero nuclear weapons worldwide. They were not very forthcoming about how the steps are going to be taken,[iii] but getting the actual elimination issue back up in lights, getting the disarmament side of the house back on intellectual track, was hugely important. There is obviously that resonance all around the place, coming into this period in the run-up to the 2010 NPT Review Conference and beyond. But we also have to think beyond that because we do not want to be totally consumed by NPT theology when we have three big elephants outside the room-India, Pakistan and Israel-and no immediate prospect of bringing them into it. That said, nobody can afford another failure with the 2010 NPT conference, a failure to generate new momentum. The next year, as a result, is going to be extremely important, although it is obviously a much longer haul than that to realize our ultimate objective.
ACT: You mentioned the Gang of Four. How do you see the commission's role being different from them and other initiatives, such as Global Zero?[iv]
Evans: I have to preface by saying I do not yet know what the commission is going to recommend, and can only speak personally at this stage. While I think broad directions are reasonably clear, I cannot yet confidently state what we are going to be proposing. I think the critical thing is for this commission to actually add some value to the debate and not just produce another all too familiar wonky laundry list. Each of the earlier panel and commission exercises, and I have participated in some of them myself, have had their own utility in keeping the debate alive and clearly articulating some of the problems. Basically, the last series of reports have involved nuclear priesthood members talking to other nuclear priesthood members, and not really breaking out of the fairly closed circle of aficionados and actually generating resonance in the wider policy community.
The important role for this commission, if we can pull it off, will be to bring together all of the multiple threats that are out there, all the interlocking and intersecting issues- disarmament, proliferation, civil uses-and to articulate an action agenda from that, which is pragmatic and realistic, but at the same time hard-hitting and with an eye very clearly on the ultimate goal we are trying to achieve here, a nuclear weapons-free world. We need to be very tough-minded and pragmatic in the way in which we recognize the political realities that are out there and accordingly, in crafting the issues and recommendations, we need to devise a strategy that will have some resonance with policymakers, and not just be seen as more orchestral violins.
Each one of the exercises that are on foot at the moment has its own place in the firmament and its own utility. Global Zero, which is basically getting the long-term objective up there in the lights, very clearly articulated, and reasonably noisily articulated, is a highly useful contribution to energizing and maintaining the sense of importance of getting there, and energizing a global constituency to do so. I see it as wholly complementary to the other exercises that are in train. At the other end of the spectrum, you have a much more cautious step-by-step approach: "let's identify the first few foothills as we work our way up the mountain but we will not be too ambitious about giant strides because it is all a complex universe out there." That is a useful combination of the idealism and the pragmatism, and has an important constituency in the United States in particular. But what we have to try to do is energize a global constituency, bringing all of the key policymakers into the game and trying to map a way through this that is actually going to get some results.
ACT: You mentioned two different approaches: the approach promoted by Global Zero, as well as Indian leaders in the past, favoring the notion of some sort of deadline for achieving nuclear disarmament on the one hand, and the incremental steps promoted by others. [v] Do you find either of these approaches more compelling?
Evans: I cannot speak for the commissioners, but I hope where we will end up is articulating a pretty clear two-phase approach to this. Phase one will be getting to a minimalist vantage point. This would involve de-alerting, and nondeployment, or nonactive deployment, maybe involving significant separation of warheads from delivery systems. It would also involve having very massively reduced numbers, down to at least the low hundreds. It would involve an accompanying doctrinal commitment to no-first-use-whether that is enforceable, of course, is another issue. I think you could talk in terms of a timetable for getting to that kind of hugely improved universe. Maybe by 2025. Maybe that is too ambitious. It depends on what your vision of the final low numbers actually are and how you manage the business of juggling multiple players, but I think that is doable.
Phase two is getting from there to absolute zero. It does not seem to be really useful talking here in terms of a date certain because what you are really talking about to get from the minimum to the zero is satisfying a bunch of other conditions that have a lot to do with perceptions of conventional arms imbalances, with neighborhood security issues, and with the perceptions of where the tectonic plates are colliding in terms of larger global strategic relationships. [There are] a whole bunch of conditions which are going to have to be satisfied before people are going to be confident enough to move this far. There are also the technical conditions, effective verification strategies and other things on which people are now working assiduously. It is going to be very hard to get there, and it may be a little counterproductive, in terms of getting to a successful conclusion of phase one, to talk too much in terms of zero and not enough in terms of steps to zero.
What I'm thinking of is an approach to this which is really quite detailed and articulate in terms of describing the steps by which you can credibly get down to the minimalist vantage point, but also articulate about the degree of difficulty and the sort of things that are going to have to happen before you can get to actual zero and recognizing the kind of political constraints that are going to weigh heavily on that. Some people regard this as being a bit too nervously cautious: "let's just go for broke and do not even talk about anything else other than a steady continuum where everything will logically follow everything else." My perception at the moment is that that is not where policymakers' heads are at. We are going to need a hell of a lot more persuasion before getting to actual zero, but it is perfectly possible to persuade them that their security and regional and global security will be very effectively guaranteed by massively reduced arsenals and in effect taking these things out of capable use.
ACT: Going from the long-term vision to the much more immediate vision, is your report geared toward the NPT review conference of 2010?
Evans: If you are thinking in terms of phases, the short term is more like 2012 than 2010. Some of the things that need to be done with the short-term focus are not going to be able to be done in time for the 2010 NPT Review Conference, and there are some other things that are going to have to be done outside that framework anyway.
ACT: Are you thinking of doing anything for the Preparatory Committee (Prep Com) this year?
Evans: There really needs to be a massive amount of emphasis on the disarmament side. We all know what the agenda is on the nonproliferation side. The United States, including previous administrations, have been very articulate about that. There is a very wide constituency of support for universalizing the 1997 Model Additional Protocol and getting some more serious compliance and enforcement constraints operating for those who shelter under the NPT umbrella while doing things they should not and then walking away from it.[vi] All of that stuff we sknow about. Plus the efforts to move forward on fuel banks and other ways of internationalizing or multilateralizing the fuel cycle, as difficult as all those things are. I think that sort of agenda is clear and needs to continue to be assiduously pursued.
But it is not going to begin to be achieved unless there is very serious movement on the other side of the house. Accordingly, what we will be saying to the administration here, over the next couple days, and what the commission has agreed is that these five points are the key stories we want to tell the administration. For a start, there are a couple of crucial building blocks relevant both to the disarmament and nonproliferation side on which we have to see movement. First, the Comprehensive Test Ban Treaty is preeminently up there in the lights; that has to be almost priority number one for the administration.[vii] It would be hugely significant if its ratification can be achieved before the 2010 NPT Review Conference.
Secondly, the other building block is a fissile material cutoff treaty or at least a fissile material initiative of some kind; not necessarily the exact FMCT we have been talking about-there are other options in play.[viii] If the United States makes very clear, as it has already, its withdrawal of the reservations on the verification side and actually puts its shoulder to the diplomatic wheel to get those negotiations started, that would be another hugely significant move in the right direction.
The third thing that clearly has to happen is trying to bring to a conclusion the resumption of the START-SORT arms control negotiations, accompanied by really obviously deep reductions.[ix] There are a lot of side issues in play that are going to complicate these negotiations like missile defense, substrategic missiles, conventional imbalances, and all the rest of it. But I would have thought prima facie that there is potential momentum there to get to deep reductions. That is hugely important, and that will feed into the NPT process in a very useful way.
Combined with that, a fourth thing is the United States has to get started on some serious strategic dialogue both with Russia and with China on the associated issues I just mentioned. You have to get started now talking to them about transparency, confidence-building issues, and China's own willingness to come aboard on the CTBT if the Americans take the lead on that, plus the larger issues of how you multilateralize the disarmament process. If there are visible conversations of that kind going on, not only will that have significance in terms of beginning to untangle U.S.-China and Russia relationships, but again it will feed very well into the NPT dynamic.
ACT: Is there a willingness on China's part to do that?
Evans: That remains to be explored. China is engaged in fairly enthusiastic modernization and expansion at the moment.
ACT: The Bush administration tried to have some sort of dialogue...
Evans: Yes, but it was not the best environment if there was ever going to be achievement on that front. It partially depends on the continuation of a reasonably sane and stable atmosphere across the Taiwan Strait, and that is the part of the puzzle that appears to be for the moment locked away. Also, the India relationship is fairly key to this; not that I think China feels itself threatened in any way by India. (I am not sure India really feels itself threatened by China either, for that matter, although that has always been part of the Indian story.) That triangular dynamic is very much going to be in play. But I would have thought prima facie that there is every reason to believe that at least an exploratory dialogue could be started. With the Russians, by contrast, you have an immediate objective: by the end of this year, you have got to cover the hiatus with START and to get something really seriously done with verification to follow through on the Moscow Treaty.[x] While you have that very sharp and precise agenda with Russia, it is very much less well defined with China. But it is important that the agenda with China get started.
Just to finish the litany, the fifth thing that is important for the Americans to do is on the doctrinal issue, the nuclear posture review and everything feeding into it. Even if we cannot get America to come up with a no-first-use commitment, at the very least it would be important to get something out there at the presidential level saying that the U.S. perception is that the sole role of nuclear weapons is to deter others from using them [and] to get away from the present almost impossible position of keeping open the nuclear option to respond to chemical, biological, or terrorist acts, whether by states or by nonstate actors.
ACT: In your view, what impact would a doctrinal shift regarding the role of nuclear weapons by the United States have on the nonproliferation and disarmament efforts you have been describing? As a follow-up, one of the things some states and commentators have said is that there is a role for nuclear weapons in deterring assistance by states to terrorist groups to acquire weapons of mass destruction. Do you find this claim credible?
Evans: It is important that there be disincentives to state support of terrorist activity, but you do not need to dangle nuclear weapons over their heads for that purpose. Our conventional capability is enough to spook any halfway rational failed, failing, or rogue state. Nuclear weapons are just not a necessary part of the repertoire. That is the view I take on extended deterrence and as to all the other things that make a number of the allied countries very nervous about giving away nukes. Of course, countries like Japan and South Korea are going to want confidence that they will be covered against any security contingency. But why on earth nuclear weapons even need to be part of that equation, I do not know.
It is particularly implausible on the question of terrorism. I am not understating the anxiety about terrorism or the risk of a terrorist incident involving nuclear weapons. You do not to have to invoke the whole Graham Allison approach to nonetheless be really quite spooked by the potential for doing damage with the amount of loose material lying around and the battlefield weapons that are being insufficiently protected.[xi] It is an entirely serious and legitimate concern, and one of the reasons why we have to get our nonproliferation act together is to reduce that potential. But the notion of needing nuclear weapons for that purpose is really bizarre.
As far as a doctrinal shift, it would be pretty significant for the United States to say that the sole purpose of nuclear weapons is to deter other people from using them. It would play very much into global perceptions that the United States is really getting serious about winding back the centrality and salience of nuclear weapons. That would be relevant in terms of getting buy-in by others on the disarmament side of the house, but also to the nonproliferation side. At the end of the day, the real significance of all this is in terms of the psychological shift it would represent in America and the psychological shift that that should in turn engender in others.
ACT: You mentioned extended deterrence earlier. Your country is said to benefit from an extended deterrence relationship. How do U.S. allies participating in this extended deterrence relationship reconcile that with calls for nuclear disarmament?
Evans: Well, again it is having confidence in the conventional capability of your big-guy ally. That is what it is all about. That is what an alliance relationship means, that you are going to be rescued against any conceivable contingency. I do not think Australia has too much to worry about. We are not in a particularly dangerous part of the universe. Even for those countries that do feel continuingly edgy about this, all the protections in the world they need are available with present conventional capability. I see them as being completely separate aims that have become tangled together.
You have some interesting dilemmas that have been much written about, in that some of the countries that are the strongest in their enthusiasm for nuclear disarmament are also the most nervous about actually getting to zero. I am very conscious of that in the context of this commission. But you just cannot play games on this issue. If you are talking about getting to zero, you have to recognize the continued salience of the mutual deterrence argument. There is no sentiment for unilateralism in any way that I can discern. But this is a completely separate argument from that about needing nukes for a variety of other security purposes.
Of course there are other problems that then start flowing from this emphasis on conventional superiority. We all know the irony of the Russian position. In the Cold War years, everybody in the West was spooked by perceived Russian conventional superiority on the European continent and needed nukes as the balance, but now the Russians are spooked by western European-American conventional superiority and want to hang on to nukes as the balancer. This is always going to be a complicating factor.
But in terms of the basic dynamics of things like posture reviews and what the United States ought to be able or willing to do right now, all these five points are significant because they represent changes from the previous administration. The nonproliferation side represents continuity. The disarmament side, and the FMCT and CTBT, represent discontinuity and forward movement. If you can get something visible happening with the CTBT, FMCT, obviously the bilateral stuff with the Russians, plus the strategic dialogue with the Russians and Chinese, plus something on the doctrine stuff-and they're all things that are being foreshadowed in one way or another by this administration-that would be a really major leap forward.
The question is, will there be the energy? Will there be the organization? Will there be the capacity to allocate priority time to get all these things moving in this sort of time frame? Will the domestic political environment, the Senate, everything else, sustain this much activity? These are difficult questions to answer. But in terms of what I think the rest of the world ought to be asking of the United States, this is a pretty relevant agenda.
ACT: You have spoken in the past about the need to bring the three non-NPT members into the global nonproliferation disarmament regime. How do you think the international community can best achieve that goal?
Evans: You have three logical options. One, which is not really an option at all, is to get them to sign up for the NPT itself, wearing either a nuclear-weapon-state hat or a non-nuclear-weapon-state hat, either of which seem to be totally implausible notwithstanding the endless numbers of speeches that continue to be made to this effect. The rituals of First Committees and NPT PrepComs and review conferences do seem to be in need of a bump along.[xii]
The second approach is to say, let's have a new whiz-bang nuclear weapons convention which basically starts from the beginning and brings together all the good things that are in the NPT, and the FMCT, and the CTBT, and creates a new universe from scratch-that has a place for these guys in it. There is a tactical question whether there is still some utility in trying to start an Ottawa or Oslo kind of process just to energize the grass roots for that sort of campaign.[xiii] In terms of getting real world results in the short to medium term, I think that is difficult to imagine happening.
So this leaves you with the third option, which is to somehow find other forms of discipline: new regimes, new strategies-bilateral, plurilateral, multilateral-that can subject these guys to global disciplines both on the nonproliferation and on the disarmament side. In that context, we have now the India-U.S. nuclear deal. The good thing you can say about it is that it does demonstrate that there are ways out there, institutionally, of subjecting nuclear-armed states presently outside the NPT to various disciplines that will be important in the long run. The fact that the Indians have to safeguard at least some of their facilities is an important step forward. But the trouble is that it is not nearly as good a deal as it should have been. Clearly it is a very weak discipline to which India is being exposed-with basically no inhibitions on fissile material production, not even on the issue of testing. It is not a model to be emulated, but it does point the way forward. We do have to somehow create parallel structures, parallel processes, parallel forms of discipline, and gradually bring people aboard on them.
ACT: In pragmatic terms, in the aftermath of the so-called India nuclear deal, what specific things do you think could exert that discipline as you describe it, and how can those be accomplished diplomatically in the years ahead?
Evans: That will be a central theme for this commission, and I do not have a clear sense of where we might come out at this stage. The NPT and the NPT Review Conference, as crucially important as they are, should not be seen as the be-all and end-all of our arms control efforts. It will be hugely important to get strong outcomes from the review conference, including by regenerating the 13 steps in some way, maybe producing some new consensus document into which others can ultimately buy in.[xiv] But the NPT by itself is not going to get us there.
We need to have other kinds of strategies moving, such as how you bring into a multilateral disarmament process not only Russia and the United States, not only China, and not only France and the United Kingdom, but India and Pakistan as well. Sooner rather than later we have got to start that kind of strategic dialogue. George Perkovich's idea of trying to encourage every nuclear-armed state to start doing the kind of studies and analyses of the national interests involved, and just what are the constraints and limitations of the moving-into-a-multilateral-force-reduction sort of framework, is a very useful one. We have to find ways of putting the heat on countries to sign up to the Model Additional Protocol, or variations on all these themes. Obviously, the CTBT and the FMCT are not NPT constrained; they have their own momentum, and it is important to generate momentum in relation to countries that are outside the NPT framework as well as within it.
Although my commission was originally billed by the two prime ministers as primarily about feeding ideas and momentum into the NPT Review Conference process, and while we are targeting a major report to be completed by the end of this year, which will have very direct resonance for that conference, it has always had a larger remit than just that. That is one of the reasons why the commission is going to continue its life at least until the middle of 2010, to survey the broader landscape as it then exists.
Another reason for giving the commission a reasonable life is some parts of its remit will take some time to explore. In terms of the peaceful-uses side, and the nuclear renaissance whether that happens or not, there are major roles and responsibilities for the civil nuclear industry in terms of developing and applying proliferation-resistant technology, and in relation to other proliferation-relevant areas. I think we will get started on generating some momentum and meeting with the industry people in Moscow in midyear. But in terms of actually getting deliverable results, I cannot see too much of that happening before the NPT Review Conference next May. One option for the commission is to host a conference bringing together the industry players with the government players. That is something that could well postdate the review conference.
ACT: One of the conversations taking place is what to do about the nuclear fuel cycle. There are ongoing considerations in that respect about the criteria that should be used to determine which states have access to any established international fuel bank, including whether or not non-NPT members should have access. What criteria do you think are appropriate for such an initiative?
Evans: I have not thought through specifically fuel bank supplies to non-NPT members, but the full range of safeguards including at the [Model] Additional Protocol level would not be a bad start. Australia, for one, has adopted a very tough view about that even though we went along with the Nuclear Suppliers Group exercise and to that extent supported the India-U.S. nuclear deal. We have remained extremely cautious committing ourselves to supplying Australian uranium.
There is a real utility in having some guaranteed nuclear fuel supply for all potential users. International Atomic Energy Agency (IAEA) Director-General Mohamed ElBaradei's vision of a single multilateralized facility under international control as a producer is very attractive indeed. But it is a vision that is going to take a long time to realize given what we know about the existing fissile material producers and their willingness to be brought under some sort of international umbrella. It is also a matter about making a judgment about whether there is going to be real demand for enough of this stuff in the future to justify the creation of new institutions, or whether the main emphasis ought to be on trying to change the role of the existing producers. It is a really complicated issue, and I and the commission are just beginning to get our heads around what the options are. It will be a major issue for this commission to wrestle with to see if we can take a little bit further the work the IAEA and others have been doing.
ACT: Moving back to the nonproliferation regime, the issues of Iran and North Korea are two of the key state challenges. There is concern that failure to deal with these challenges early on may serve to unravel or begin to unravel the nonproliferation regime. What steps do you think can be done to make sure that those challenges do not threaten the regime as a whole?
Evans: As far as the North Korea issue is concerned, it seems likely that there is going to be more of the same process with the six-party talks [with] "two steps forward, one step back" being the name of the game maybe in perpetuity. But at least the situation is now stabilized. There is no particular evidence that any more bomb material is being made. Whether anything is happening on the highly enriched uranium side, as distinct from plutonium side, remains a matter of speculation.[xv] It is an unsatisfactory process. It is a limping process. But it beats the hell out of the non-process we had before.
Iran is rather more difficult, and on this one, I have my own views. Whether they will prove to be the commission's views I do not know. My view is that there is a doable deal there to be done right now with the Iranians, but it will require a deep breath on the part of the West-and that is accepting the reality of Iranian fissile material production. By all means, spread out over time the achievement of industrial-scale capacity, and by all means try to multilateralize the process to some extent with the kind of consortium arrangements that the Iranians themselves still seem prepared to sign up to.[xvi] But let's not pretend that any form of pressure at all-given the pride and all the other domestic and international political factors that are in play-is going to persuade the Iranians to go back to zero or even to stop where they are now. What I believe is doable is drawing the red line that really matters, that against weaponization.
I have had a sustained dialogue with the Iranians about this. As recently as last weekend, I had 45 minutes with Speaker of the Iranian Parliament and former nuclear negotiator Ali Larijani in Munich, and I was in Tehran last year talking to Iranian nuclear negotiator Saeed Jalili and many other key players. On the other side, I've talked to key U.S. players; Undersecretary of State for Policy Bill Burns and others in the previous administration, plus with the Europeans, [including] EU High Representative for the Common Foreign and Security Policy Javier Solana, his adviser Robert Cooper the EU director-general for external and politico-military affairs, and various ministers. So I have a pretty clear idea of what is going on and a sense of what options are in people's heads.
The way through this is for Europe and North America to recognize the reality on the fissile material side of it, but to draw an absolute red line against weaponization which I think would be sustainable. There are a whole bunch of reasons why the Iranians should in fact have made the cost-benefit judgment that it would do them much more harm than good to actually acquire a nuclear weapon But that is distinct from having a perceived breakout capability, the capacity to produce one. They want that very much. That is non-negotiable, I think. But having got that much, I think they would be content with it.
The issue is of course, verification: trust but verify. The Iranians should have to sign up to a highly intensive, highly discriminatory monitoring and verification regime. That, at the very least, would have to be the Model Additional Protocol and all the bells and whistles that go with that-but probably a special Additional Protocol-plus regime to enable the West to have a little more confidence, not only on the fissile material side but also concerning physical weaponization and missile delivery systems. The Iranians are not very happy about anything that constitutes further "discrimination" since their whole argument is they have been discriminated against in exercising their rights under the NPT. But, as I say to them: you guys have had a program,- maybe not committing you to weaponization but certainly to exploring the options-which everybody is concerned about. And with your president spooking a lot of people internationally with his public statements, and with the kind of existential threat that even the possession of just one or two weapons would represent and be perceived to represent to the Israelis, you have to recognize that very stringent verification indeed will be required.
I think there is a deal to be made where the West makes a big concession, the Iranians make a big concession, and then you just juggle it out on the basis of incentives and disincentives. You keep, very obviously, the military option should they step across that red line [which is] the 800-pound gorilla in the background. You also have lots of incentives in the form of normalization of relations and progressive relaxation of sanctions, all of which would create an environment under which we could fairly rapidly achieve some serious normalization of relations in the region and very much play into a much more constructive Iranian approach on Syria, Lebanon, Hamas, Hezbollah, Iraq, and Afghanistan. I think the nuclear issue is the key to resolving all those others. You are just not going to begin to make progress on them unless you can resolve this one.
Larijani's speech at Munich last week was fairly fierce. Ninety percent of it was pitched to a domestic hard-line constituency, but as to 10 percent of it, the doors and windows were wide open. Similarly with Vice President Joe Biden's speech and what has come out of the administration so far the doors and windows are open. The trick will be to manage the process now and find ways of exploring the kind of deal in essence that I'm describing, to get each side past the initial barriers of mistrust that are inhibiting any serious discussion. I could go into much more detail about why I think the Iranians do not actually feel themselves committed to a nuclear weapon, on the contrary, but that is another story.
ACT: The world is grappling with a number of challenges right now. How do we make sure efforts to lead to nuclear disarmament are given the momentum and attention they deserve?
Evans: That is a good question and one that has really troubled me. How do you energize a political constituency that basically, apart from the terror issue and the concern about nonstate actors getting hold of nukes, just does not really instinctively grasp the risks that are involved out there [and] which thinks that it's a Cold War problem and we've moved on. How do you move a public that is just not really energized or even interested in this issue at all and regards it all as just hairy-socks-and-sandals-placard-waving stuff from the sixties? Our own commission, and all of the other initiatives that are presently going on, have to find ways of demonstrating the nature and scale of the risks that are out there.
Telling some of the Cold War stories about how close we came during this allegedly sane and stable period may be helpful. The more information that comes out, the more disconcerting it is. Understanding the extent of the insecurity that is out there at the moment is also important. It helps to get those stories about the Air Force losing half a dozen strategic missiles for days on end. Similarly with stories about how much more work needs to be done to secure weapons stockpiles, particularly the small battlefield stuff, which is easily transportable, plus fissile material. Similarly to get the story out loud and clear about just how much damage these things can do. I do not think we have spent enough time getting city-impact diagrams out there about the damage that a Hiroshima-sized bomb would do, as compared say with the 9/11 attacks, and then of course what a strategic weapon could do. In all of this it is a matter of getting the information into the heads of the senior policymakers, and it is a matter also of energizing something bottom-up with the civil society constituency.
ACT: How do you do that without the sort of scare tactic we have seen in the recent commission report that says in the next five years there's a 50 percent chance of an attack with weapons of mass destruction?[xvii]
Evans: You harness the scare tactics to the extent the data and analysis will support them. Some people like Graham Allison are saying that there is a 10 per cent chance in the next 10 years of a major nuclear incident in a major city in the world. For example nonstate terrorist actors taking a boat into New York harbor and bolting together some sort of gun-type device, not just a radiological or dirty bomb but a real nuclear bomb.[xviii] If that figure is defensible, nobody in the universe would think a similar level of risk, a 10 per cent chance in 10 years , is acceptable in building, for example, a nuclear reactor power plant.
The risk of something going very badly wrong with nukes, and the catastrophic implications of this for the whole world, are right up there with the level of risk involved with the present economic meltdown and the climate change story. The nuclear threat really is one of the big three in terms of the sheer scale of the damage that could be done by getting it wrong.
There is also the story about how readily available the relevant technology is, not only through the help of Mr. Abdul Qadeer Khan, but via the internet. This is very much more real, and dangerous, than it was 15-20 years ago in terms of what is doable by the malignly disposed. Then if you get more players in the proliferation game, it gets worse. The United States and Russia had a pretty well-orchestrated set of minuets that they danced in terms of the control arrangements, hotlines and the rest. But elsewhere things are more problematic. I was in Pakistan just three weeks ago and a senior official told me privately, "You know we put in place so-called hotline arrangements between ourselves and India after some of the earlier scares to try and minimize the risk of anything untoward happening. But with all the tension we've had since Mumbai, lasting many weeks now, that telephone line has not been used and there has basically been no direct senior-level communication at all." I know from being in both Indian and Pakistani capitals how high the level of tension was. It has been a classic situation with great potential for miscalculations and escalation. Yet those mechanisms, rudimentary as they are, are just not being used.
All of these stories have to be told and in a way that has resonance for policymakers. You are not going to get them to make any of the changes we want just by making the moral case or the technical case-the verifiability issue, and the argument that military uses are negligible and probably counterproductive. You have somehow to make a political case, talking about the cost of weapons possession, the downside risks associated with it, and somehow change the parameters of the political debate. The best chance of doing that is with the new administration here in the United States that is seriously committed to thinking and talking in those terms. Your presidential bully pulpit is infinitely more significant than any commission, or anything that any nongovernmental organization can do.
ACT: Thank you.
[i] The Australian government established the Canberra Commission in 1995 to provide recommendations for steps toward global nuclear disarmament.
[ii] The eighth NPT review conference held in 2005 concluded without any substantive agreement on its consideration of the provisions of the treaty and has therefore been widely seen as a failure. The same year, the UN General Assembly held a high-level summit that adopted a final document that excluded any reference to nuclear disarmament, which was contained in earlier drafts. The Conference on Disarmament is a 65-member negotiating body on nonproliferation and disarmament matters. Since 1997, it has been unable to agree on an agenda to begin substantive work.
[iii] Former Secretaries of State George Shultz and Henry Kissinger, former Secretary of Defense William Perry, and former Senator Sam Nunn (D-Ga.), sometimes referred to as the Gang of Four, joined to write two op-eds in The Wall Street Journal in 2007 and 2008 calling for steps toward a nuclear weapons-free world. See George P. Shultz, William J. Perry, Henry A. Kissinger, and Sam Nunn, "A World Free of Nuclear Weapons," The Wall Street Journal, January 4, 2007, p. A15; George P. Shultz, William J. Perry, Henry A. Kissinger, and Sam Nunn, "Toward a Nuclear-Free World," The Wall Street Journal, January 15, 2008, p. A13. Both essays can be found on the Nuclear Threat Initiative's Web site. See www.nti.org/c_press/c3_opeds.html.
[iv] Global Zero is an international civil society campaign launched in 2008 working to promote global nuclear disarmament.
[v] In 1988, Indian Prime Minister Rajiv Gandhi called for an international convention banning nuclear weapons as an effort outside the NPT. Since then, Indian leaders and officials have often repeated this call. New Delhi has refused to join the NPT, which it characterizes as "flawed and discriminatory" due to the division of nuclear-weapon states and non-nuclear-weapon states.
[vi] The IAEA Board of Governors adopted the Model Additional Protocol in 1997 to address concerns that states may carry out undeclared nuclear activities in an effort to develop nuclear weapons. States that adopt an additional protocol to their IAEA safeguards agreements provide the agency with greater legal authority to monitor all nuclear activities carried out in that country.
[vii] The 1996 Comprehensive Test Ban Treaty prohibits all nuclear explosions and will formally enter into force after 44 designated "nuclear-capable states" have ratified the treaty, including the United States. As of March 2009, 35 of those countries have done so. The United States maintains a nuclear testing moratorium, but the U.S. Senate declined to give its advice and consent to ratify the CTBT in 1999.
[viii] In 1993 the United States called for a multilateral convention banning the production of fissile materials for nuclear explosives, often called a fissile material cutoff treaty (FMCT). The Conference on Disarmament (CD) agreed on a mandate to negotiate such a treaty in 1995, but the CD has failed to reach agreement to begin negotiations on such a measure. Following a U.S. policy review of the proposed FMCT, in 2004 the Bush administration determined that the treaty was not effectively verifiable and indicated that it would not support the inclusion of verification provisions in the treaty. The Obama administration has indicated that it would reverse that position.
[ix] The United States and Soviet Union signed the START in 1991 to limit the number of strategic nuclear warheads and delivery systems each state would deploy by December 2001. The treaty expires in December 2009 but may be subject to five-year extensions or superseded by another agreement.
[x] The Strategic Offensive Reductions Treaty (SORT), or Moscow Treaty, was concluded by the United States and the Russian Federation in 2002 to limit each country to 1,700-2,200 operationally deployed strategic nuclear warheads. The deadline for implementation and expiration date for the treaty is December 31, 2012.
[xi] Graham Allison, director of the Belfer Center for Science and International Affairs and Douglas Dillon Professor of Government at Harvard's John F. Kennedy School of Government, estimated in his 2004 book Nuclear Terrorism: The Ultimate Preventable Catastrophe that the chance of a terrorist attack involving nuclear weapons occurring by 2014 is a greater than 50 percent.
[xii] The UN General Assembly First Committee meets annually to address disarmament and international security issues. NPT states-parties hold conferences every five years to review the treaty and preparatory committees (PrepComs) for those review conference each year for three years preceding those review conferences.
[xiii] The Ottawa and Olso processes were arms control negotiations on anti-personnel landmines and cluster munitions, respectively, conducted outside the formal, established disarmament negotiating fora. The efforts were pursued following a lack of agreement in negotiating fora such as the CD about whether and how to limit the use of such weapons. Both negotiations resulted in treaties prohibiting the use of specific classes of arms.
[xiv] As part of the 2000 NPT Review Conference Final Document, the states-parties agreed on a list of 13 "practical steps" aimed at "systematic and progressive efforts to implement Article VI" of the NPT. The Bush administration opposed a number of the 13 steps, including the early entry into force of the CTBT and refused to reference the 2000 NPT Review Conference Final Document in the agenda of the NPT review conference in 2005.
[xv] The United States has accused North Korea of maintaining an undeclared effort to produce highly enriched uranium (HEU) in addition to its plutonium-based nuclear weapons program. The extent of any such North Korean HEU effort remains unclear, but Pyongyang is known to have imported materials of relevance to a gas centrifuge uranium-enrichment program.
[xvi] Iranian officials have proposed that other countries participate in Iran's nuclear activities, including its uranium-enrichment effort, as part of a multinational consortium.
[xvii] A December 2008 report by the congressionally created Commission on the Prevention of Weapons of Mass Destruction Proliferation and Terrorism concluded that "it is more likely than not that a weapon of mass destruction will be used in a terrorist attack somewhere in the world by the end of 2013."
[xviii] A gun-type nuclear device is the simpler of two forms of nuclear explosive mechanisms. It entails firing one piece of weapons-usable fissile material into another in order to achieve a critical mass and produce a nuclear chain reaction. It can achieve a desired nuclear explosive effect without the need for nuclear testing.