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Thursday, November 26, 2015
- Last month, negotiators from the United States, its P5+1 partners (China, France, Germany, Russia, and the United Kingdom), and Iran agreed to a framework for talks on a “comprehensive solution that would ensure Iran’s nuclear programme will be exclusively peaceful.”
The road ahead will be difficult. Many differences must be bridged, and hard-liners in Washington, Tehran, and Jerusalem will throw up obstacles along the way. An effective, multiyear deal can only be achieved if each side is ready to compromise and pursue realistic solutions that meet the other sides’ core requirements.
A successful agreement will verifiably roll back Iran’s overall enrichment capacity, block the plutonium path to the bomb, put in place even tougher international inspections, resolve outstanding questions about the purpose of Iran’s programme, and lead to the removal of nuclear-related sanctions. But first, negotiators must resolve several tough issues in the next few months.
Uranium enrichment. The two sides have agreed to negotiate “practical” limits on the scope of Iran’s enrichment activities in order to reduce Tehran’s ability to build nuclear weapons.
Today, Iran has a very limited need for enriched uranium fuel for energy production. Iran has one research reactor, for which it has an ample supply of fuel, and a power reactor that uses fuel to be supplied by Russia for the next 10 years or more.
Tehran says it has plans for up to 16 more reactors, which would require a sizable enrichment capacity, but these plans are many years away from reality.
Consequently, the P5+1 can and should seek a significant reduction in Iran’s current enrichment capacity – from 10,000 operating, first-generation centrifuges at two sites to approximately half that number or less for a period of at least 10 years.
Even with 4,000 or fewer first-generation centrifuges at one site, Iran would have more than sufficient capacity for its foreseeable needs. Along with a cap on the enrichment of uranium to no more than five percent, a reduction in the number of centrifuges would increase the time necessary to produce enough highly enriched uranium for one bomb to six months or more.
Enhanced inspection rights would ensure that any such activity would be readily detected within days.
If Iran tried to build a nuclear arsenal, it would take considerably more than a year to amass enough material for additional weapons, assemble a nuclear device, and develop an effective means of delivery.
So far, Iran has insisted that it wants to be able to develop new, more efficient centrifuges. Consequently, the two sides will likely set limits on the overall capacity of Iran’s enrichment programme rather than the total number of centrifuges.
The P5+1 wants Iran to close its underground enrichment facility at Fordow, which is less vulnerable to air attacks, while Iran opposes dismantling its facilities. The two sides might compromise by agreeing that Iran will effectively halt any significant enrichment at Fordow and convert it to a “research-only” facility.
The Arak reactor. The P5+1 has argued that Iran should abandon its unfinished 40-megawatt heavy-water reactor near Arak, which is well suited for the production of plutonium. One compromise would be to convert Arak into a more proliferation-resistant light-water reactor or, as Iranian officials have suggested, make design and operational changes to reduce its plutonium potential.
These changes could include reducing the power level at least to five megawatts and using uranium fuel enriched to 3.5 percent. Iran is not known to have a reprocessing plant, which would be needed to extract plutonium from spent fuel, but Iran could be required to send Arak’s spent fuel to a third country to further reduce the proliferation risk.
Tougher international inspections. If Iran were to pursue nuclear weapons development, it most likely would try to do so in secret at undisclosed facilities. Consequently, Iran must allow international inspectors access to all sites, including undeclared sites, under the terms of the additional protocol to its existing safeguards agreement with the International Atomic Energy Agency (IAEA).
Once approved by the Iranian parliament, the protocol would be permanent. Further monitoring measures of Iran’s nuclear industry could help detect and deter any secret weapons programme.
Concerns about potential weapons experiments. Iran also will need to accelerate its cooperation with the IAEA to allow the agency to determine with confidence that Tehran is no longer engaged in research with potentially military dimensions. Given that the investigation will continue for some time, the agreement between Iran and the P5+1 should specify that Iran shall not conduct any experiments with nuclear weapons applications.
These step-for-step actions will require a new U.N. Security Council resolution to replace earlier resolutions on Iran’s nuclear programme; positive, prompt follow-up actions by the EU states; and approval by Congress of revised legislation that unwinds nuclear-related sanctions.
It is important that Congress, which has an important role in implementing any final phase deal, supports the P5+1 effort on the basis of a clear understanding and realistic expectation for what the negotiations can deliver.
Unfortunately, some members of Congress say they hope “negotiations succeed in preventing Iran from ever developing a nuclear weapons capability.” Others say they are “hopeful a permanent diplomatic agreement will require the dismantlement of Iran’s nuclear weapons-related infrastructure ….”
According to the U.S. intelligence community Iran has had, at least since 2007, the scientific, technical, and industrial capacity eventually to produce nuclear weapons if it were to choose to do so. That capacity can be reduced but not entirely eliminated, even Iran were required to dismantle its uranium enrichment machines and facilities — and a deal that would require Iran to dismantle major facilities would be politically unsustainable in Iran.
Negotiating a realistic final phase agreement with Iran will be difficult, but a sustainable arrangement is achievable. It is the best and perhaps only alternative to an unconstrained Iranian nuclear programme, the risk of war over the issue, and potentially a nuclear-armed Iran.
Daryl Kimball is executive director of the independent, non-partisan Arms Control Association in Washington, D.C. He has been engaged in research and policy work on nuclear nonproliferation and arms control matters since 1989. This essay is based on an earlier version published in Arms Control Today.