Molten-Salt and Salt-Cooled Nuclear Reactors: The Opportunities and Challenges Faced in Providing a Global Solution to Clean Energy
Seminar Recording: https://youtu.be/8JDHuY0HMCM
Abstract: The motivation to develop nuclear energy waned in the latter part of the twentieth century. Technologies such as very-high-temperature gas-cooled reactors and fast-neutron liquid-metal reactors had been pursued for the purpose of recycling used nuclear fuel from water-cooled reactors, or for the purpose of supplying high-temperature process heat to the chemical industry or for hydrogen production. While both worthwhile causes, one could argue that the important missing element of all of these advanced nuclear reactor technologies was a business case: how were nuclear power plants to be profitable? With the more widely recognized need for decarbonizing energy production, the new driver for developing nuclear energy became cost. Can nuclear power be economically competitive with natural gas and coal, in order to provide an economic driver for the displacement of fossil fuel? This became the new motivation for nuclear energy development in the twenty-first century, and over the last decade the unthinkable happened: a growing and striving ecosystem of nuclear energy start-up companies. Many of these start-up companies pursue the development of liquid-fuel molten salt reactors, fueled by thorium or uranium fuel. Other start-up companies develop solid-fuel reactors cooled by salt, or even fusion reactors cooled by salt. The common feature of nuclear reactors that utilize molten salt is the operation at high-temperature and atmospheric pressure. The high temperature leads to doubled power efficiencies, compared to conventional water-cooled reactors. The atmospheric pressure leads to a safety case that is arguably easier to demonstrate, and hence that would enable a faster commercialization time. On the other hand, there remain many technical risks and time-line uncertainties for the development of salt nuclear technologies. There remain also questions of policy, licensing, and compatibility with local industry and local culture, necessary elements for the global development of such nuclear reactors. This talk will explore some of the challenges faced by the global deployment of molten-salt and salt-cooled reactors, and some of the challenges faced by nuclear start-up companies in order to change the innovation cycle for nuclear energy technology from thirty years to a much shorter time frame.
Speaker's Biography:
CISAC's Rod Ewing to Receive Mineralogical Society of America's Distinguished Public Service Award
CISAC Co-Director Rodney Ewing was awarded the Distinguished Public Service Award from the Mineralogical Society of America (MSA), to honor his “important contributions to furthering the vitality of the geological sciences.”
“I don’t know anyone more deserving of this award than Rod,” wrote Kevin Crowley, National Academies of Sciences, Engineering, and Medicine (retired), in the citation for the award. “Rod is first and foremost an extraordinarily creative and productive scientist, having authored or coauthored over 750 research publications and established fruitful research collaborations with scientists in several countries. He is also a founding editor of Elements Magazine, co-published by 18 national and international scientific organizations, which focuses on current themes in the mineralogical and geochemical sciences.”
“He has been a major force in the application of science and technology to national and international public policy making on nuclear waste management and disposal... and appointed by President Barack Obama to serve on the U.S. Nuclear Waste Technical Review Board,” Crowley continued.
Among Ewing’s honors, he also is the past recipient of the MSA’s Dana Medal and Roebling Medal, the Russian Academy of Sciences’ Lomonosov Gold Medal, and was elected to the U.S. National Academy of Engineering.
CISAC Team Releases Satellite Imaging-Based Study of North Korean Uranium Mines
North Korea currently has only one publicly known uranium mine—the Pyongsăn uranium mining and milling complex—that serves as a first step in the country’s pathway towards nuclear weapons.
Using a combination of multispectral imagery sourced from the European Space Agency’s Copernicus Sentinel-2 satellite and a review of geological analyses dating back to 1955, a new study from Stanford’s Center for International Security and Cooperation (CISAC) in Jane’s Intelligence Review by geological sciences postdoctoral fellow Sulgiye Park (PhD ’17) and CISAC honors student Federico Derby (BS ’19) looks for evidence of uranium mining in North Korea, going beyond what is currently available in open sources in order to estimate the uranium resources and their locations in North Korea.
The peer-reviewed CISAC study has identified around 18 additional sites in North Korea where the hyperspectral signatures and geological profile combine to suggest the possibility of uranium mining. Nevertheless, CISAC and Jane’s stress that the presence of these ‘hotspots’ does not imply the presence of an active uranium mine or related facility, but rather a site that warrants further analysis.
In this Q&A with Katy Gabel Chui, researchers Sulgiye Park and Federico Derby discuss their work on the project:
How did you land on this project? What made you think to look for more mining sites?
Sulgiye Park (SP) and Federico Derby (FD): Very little is known about the front-end of North Korea’s nuclear fuel cycle, particularly when it comes to the mining and milling processes of uranium production pathway. To date, assessments of this portion of North Korea’s nuclear fuel cycle have been mostly conducted through traditional (electro-optical) satellite imagery observations---the type of imagery that you can access through Google Earth, for instance.
We wanted to get a more complete grasp of North Korea's uranium mining and processing capacity by conducting a multi-disciplinary approach that combines both the visible signatures from multi-spectral satellite imagery and a geological dataset that contains information such as mineralogy and geochemistry. The two individual methods come together at the end to provide information that encapsulates the potential regions likely to host uranium deposits and mines.
What is multispectral imaging? How would it ordinarily be used, and how did you use it for this project?
SP and FD: Traditional electro-optical satellite imagery exploits only three portions of the electromagnetic spectrum; namely, the blue, green and red bands. In general, when using the term “multispectral” within the satellite imagery community, we are usually referring to a satellite system that covers a few to tens of different bands in the electromagnetic spectrum.
Multispectral imagery is used in a wide variety of industries, to measure things like water turbidity, crop healthiness, vegetation quality, etc. For this project, we focused on using spectral fingerprints. Basically, every object – whether it be a mineral, a living thing, water, etc. – has a(n in theory unique) spectral fingerprint. Spectral fingerprints are measured as the intensity of the object’s reflectance of light at a specific wavelength. Varying across wavelengths – hence the importance of having a multispectral system that can give you access to different ranges of the electromagnetic spectrum – you ultimately get a spectral curve that is unique to the item you are studying.
The spectral fingerprints you collect on a specific image can be compared to previously collected fingerprints stored in what is usually termed a spectral library, for classification purposes. Basically, if my spectral curve of a given pixel (or set of pixels) looks super similar to that of gold (for which I obtained a reference spectral curve from a spectral library), then it is probably gold. Obviously, this matching is performed in a more rigorous manner, but you get the idea of how the process works.
In this project, we used the Pyongsan uranium mine in North Korea (arguably the only well-identified uranium mine in the country) as my reference spectral curve. Essentially, using various imaging techniques, we traversed North Korea looking for pixels whose spectral curves are similar to that of the Pyongsan uranium mine. Those are the ‘hotspots’ we identified.
What most surprised you in both your work and your findings?
SP and FD: The fascinating match between the 'hotspots' identified through satellite imagery analysis and the geologic information available in maps and reports. The majority of the 'hotspots' appeared adjacent to the limestone formation from the Ordovician period (circa 445-485 Ma) that are in contact with a specific sedimentary rocks of upper Proterozoic group. Part of the geologic characteristics of the 'hotspots' regions were similar to what had been observed in the Pyongsan (the most well-known) uranium mine of North Korea.
What was most surprising in the work itself? What was difficult in doing the work?
SP and FD: It was surprising to see how much we still don't know about North Korea despite the amount of effort that had been invested. There is no consensus reached regarding the location and the total number of uranium mines in North Korea.
One of the bigger difficulties we had was finding credible geological data and information.
What is the one thing you think someone should take away from your study?
SP and FD: That there are still many unknowns. While our study identified multiple regions with spectral signatures similar to the uranium tailing piles at Pyongsan, verification of uranium presence is still needed.
What are you working on next?
SP: I am still working on using a geologic approach to glean information on the uranium mines of North Korea. The further evaluation aims to identify a qualitative upper limit of uranium ore grade (quality) and quantity pertaining to all the suspected uranium mines in North Korea.
FD: I co-founded a startup focused on developing deep learning models for credit risk analytics (in Latin America). However, I will still keep in touch with my CISAC peers!
Behavioral Economics and Nuclear Weapons
Recent discoveries in psychology and neuroscience have improved our understanding of why our decision making processes fail to match standard social science assumptions about rationality. As researchers such as Daniel Kahneman, Amos Tversky, and Richard Thaler have shown, people often depart in systematic ways from the predictions of the rational actor model of classic economic thought because of the influence of emotions, cognitive biases, an aversion to loss, and other strong motivations and values. These findings about the limits of rationality have formed the basis of behavioral economics, an approach that has attracted enormous attention in recent years.
This collection of essays applies the insights of behavioral economics to the study of nuclear weapons policy. Behavioral economics gives us a more accurate picture of how people think and, as a consequence, of how they make decisions about whether to acquire or use nuclear arms. Such decisions are made in real-world circumstances in which rational calculations about cost and benefit are intertwined with complicated emotions and subject to human limitations. Strategies for pursuing nuclear deterrence and nonproliferation should therefore, argue the contributors, account for these dynamics in a systematic way. The contributors to this collection examine how a behavioral approach might inform our understanding of topics such as deterrence, economic sanctions, the nuclear nonproliferation regime, and U.S. domestic debates about ballistic missile defense. The essays also take note of the limitations of a behavioral approach for dealing with situations in which even a single deviation from the predictions of any model can have dire consequences.
The Future of Global Nuclear Power Through the Eyes of Young Russian and American Professionals
As we witness the increasingly detrimental effects of global climate change, the role that nuclear power could play globally to mitigate its effects continues to be debated. The series of articles featured in the Bulletin in December 2016 aired a broad spectrum of opinions, ranging in assessment of the role of nuclear power from insignificant to mandatory. In this series, we present the perspective of a new crop of nuclear professionals who collectively represent two of the world leaders in nuclear power—the United States and Russia.
These young professionals work together to exchange views and ideas as part of the U.S.-Russia Young Professionals Nuclear Forum that we created in May 2016 to encourage dialogue on critical nuclear issues of concern to both countries. As most official avenues of US-Russia cooperation on nuclear issues were being shut down in pace with the deteriorating political relations between Washington and Moscow, our objective was to turn to the younger generation, because those in it will have to live with the consequences of a world in which their countries no longer cooperate to mitigate global nuclear dangers.
In the United States, our efforts are organized within the Center for International Security and Cooperation at Stanford University, although we reach out to universities and other organizations across the country. In Russia, we were fortunate to find the Moscow Engineering Physics Institute (MEPhI), Russia’s flagship research university in nuclear engineering, to be an enthusiastic partner. Its rector, Professor Mikhail Strikhanov, has an unwavering international outlook that stresses the need for cooperation, especially in higher education and research. The young professionals are students, postdoctoral fellows, and early career professionals.
Hecker has previously written in the Bulletin about the remarkable period of post-Cold War nuclear cooperation between Russian and American nuclear weapon scientists and how the termination of that cooperation by our governments threatens our collective security. We viewed engaging young professionals from the two countries as one of the few avenues of continued cooperation. It has the potential of being particularly effective because at the forum meetings, the young Russians and Americans interact in an educational and non-adversarial environment.
The first three forum meetings focused primarily on issues of nuclear non-proliferation and countering nuclear terrorism. They featured exercises in which the young professionals worked in small groups side by side to explore solutions to vexing nuclear problems. One was a simulation conducted at Stanford in May 2018 just a few weeks before the historic Trump-Kim Singapore Summit. The other was an exercise in Moscow in October 2018 to advise their governments on a hypothetical crisis related to the US withdrawal from the Iran nuclear deal.
At the Moscow forum, we also asked the young professionals to explore what the two countries could do to promote the benefits of nuclear energy around the globe, while cooperating to mitigate the associated risks.
Preparation for the forum included online lectures by senior mentors as well as lectures and discussion sessions in Moscow by both Russian and American specialists. In the nuclear power exercise, we assigned eight key questions to 24 young professionals. We divided them into eight teams, each composed of Russian and American participants. The central question was whether or not an expansion of global nuclear power is necessary to help mitigate the danger of global climate change. Individual groups examined issues of supply and demand around the globe and some of the big challenges posed by an expansion of nuclear power—those of economics, safety and security, potential proliferation of nuclear weapons, and the disposition of nuclear waste.
The young professionals conducted research prior to the meeting, deliberated and debated within their teams during the meeting, and presented their findings to the larger group and the panel of senior mentors at the end of the exercise. During the past six months they have captured the essence of their findings in the eight articles featured in this special presentation in the Bulletin.
Their findings are generally pro-nuclear, which is not surprising considering that most of them have strong educational and research backgrounds in either nuclear technologies or nuclear security. But we found that their views were primarily driven by their serious concerns about the dangers of global climate change and the urgent need to confront these dangers.
Their articles are of interest not so much in that they break new ground in these areas, particularly since many other established experts have tried to tackle these issues for decades. They are of interest because they represent the views of some of the younger generation of professionals working together across cultural and disciplinary divides. We were struck by the following comment in one of the papers that reflects on the perceived urgency of the task at hand: “We are the first generation that is experiencing the dramatic effects of global climate change and likely the last that can do something about it to avoid catastrophic consequences for the Earth and its people.”
We also note that the articles uniformly reveal that the young professionals across the board firmly believe that the benefits and risks of expanding nuclear power globally must be pursued and tackled in a concerted effort of major nuclear powers (especially the United States and Russia), other developed nations, the International Atomic Energy Agency, and all stakeholders. These younger voices stated: “The most important shift necessary to facilitate [nuclear power] expansion is an increase in international cooperation and multilateralization in the form of, for example, international reactor supply contracts, multinational enrichment conglomerates, nondiscriminatory fuel banks, and international waste repositories.”
We believe the readers will find the sentiments and opinions of the young Russian and American professionals interesting and encouraging. We certainly have found them eager and able to work together effectively—a lesson that the more senior professionals and the governments need to relearn.
Editor’s note: The Young Professionals Nuclear Forum cooperation is supported by the John D. and Catherine T. MacArthur Foundation and the Carnegie Corporation of New York.
Read the articles here:
- Nuclear Power and Global Climate Change
- What Countries Will Be the Most Important in Leading a Significant Expansion of Global Nuclear Power—Both From the Perspective of the Supplier and the User?
- Should Nuclear Power Be Expanded Significantly Into Developing Countries?
- What Will Be Required for a Significant Expansion of Global Nuclear Energy?
- Resolving Safety and Security Concerns About Nuclear Power
- Why Nuclear Power Plants Cost so Much—and What Can Be Done About It
- Will Nuclear Waste Disposal Challenges Limit a Significant Expansion of Global Nuclear Power? Part 1
- Will Nuclear Waste Disposal Challenges Limit a Significant Expansion of Global Nuclear Power? Part 2
At Stanford, US and Russian Young Professionals Meet on Nuclear Topics in 5th Meeting
In early May, CISAC convened the fifth Young Professional Nuclear Forum (YPNF), a program sponsored by the Center for International Security and Cooperation at Stanford University and the Moscow Engineering and Physics Institute (MEPhI). The program brought together a lively group of young Russians and Americans working on nuclear issues over three days.
Since 2016, the forum has alternated between Moscow and Stanford.
By 2016, US and Russian governments closed almost every door on opportunities that previously allowed experienced nuclear professionals on both sides to cooperate with each other. Stanford Professor Siegfried Hecker saw that at least one door - that of cooperation on the university level - was still open. He started the YPNF to foster interaction between the younger generation of Russians and Americans who study, do research, or start a career in the nuclear power or nonproliferation fields.
This year’s agenda focused on two major areas: US-Russian arms control and the future of nuclear power.
The American group included a new cohort of six incoming young professionals from Los Alamos National Laboratory, UC Berkeley, Center for Arms Control and Non-Proliferation, and Vienna Center for Disarmament and Non‑Proliferation. They were joined by CISAC research staff members Gaby Levikow and Elliot Serbin and current and former fellows Chantell Murphy, Kristin Ven Bruusgaard, and Cameron Tracy. The Russian group from MEPhI brought a team of 12 young professionals most of whom are pursuing their graduate degrees in nuclear physics and engineering and software engineering, along with junior professionals in international relations and nuclear fields. The team of experts included Professor Hecker, Dr. James Toevs, Dr. Ning Li, Ambassador Steven Pifer, Professor David Holloway, Dr. Larry Brandt, Dr. Chaim Braun, Dr. Pavel Podvig, and Dr. Mona Dreicer, —all of whom provided advice and feedback during the exercise.
Participants come from loosely defined “technical” and “policy” fields, and the forum agenda has traditionally included one nuclear-power related and one policy-focused subject. Forum activities vary between lectures, expert briefings, discussions, and table-top exercises, but the small-group work during the exercises is the core form of interaction.
By design, this agenda exposes each participant to new fields, new counterparts, some fun interactive time off - and encourages a lot of cultural learning. Forum after forum, we hear back that the group work and social time are the most exciting aspects of the forum experience. Participants noted they learned, among other things, “general ideas and thoughts of American participants and their attitudes to the present American policy, new words and abbreviations … [and] a great deal about new reactor designs and their implications for nuclear energy and security policy.” Still more participants enjoyed “learning to collaborate in groups of Americans and Russians but also between policy and technical experts on topics of both camps,” and some “got new friends.”
Encouragingly, participants requested more interaction between the bi-annual meetings and a variety of topics in yet untapped – or suspended - areas of cooperation between Russia and the US.
New work continues to emerge from the forum. Eight short articles written by the young professionals to showcase the results of the projects from the Moscow meeting in November 2017 was published in the Bulletin of the Atomic Scientists in June 2019. The next meeting will be held in Moscow this November.
Dissolution of radioactive, cesium-rich microparticles released from the Fukushima Daiichi Nuclear Power Plant in simulated lung fluid, pure-water, and seawater
Abstract: To understand the chemical durability of highly radioactive cesium-rich microparticles (CsMPs) released from the Fukushima Daiichi Nuclear Power Plant in March 2011, we have, for the first time, performed systematic dissolution experiments with CsMPs isolated from Fukushima soils (one sample with 108 Bq and one sample with 57.8 Bq of 137Cs) using three types of solutions: simulated lung fluid, ultrapure water, and artificial sea water, at 25 and 37 °C for 1–63 days. The 137Cs was released rapidly within three days and then steady-state dissolution was achieved for each solution type. The steady-state 137Cs release rate at 25 °C was determined to be 4.7 × 103, 1.3 × 103, and 1. 3 × 103 Bq·m−2 s−1 for simulated lung fluid, ultrapure water, and artificial sea water, respectively. This indicates that the simulated lung fluid promotes the dissolution of CsMPs. The dissolution of CsMPs is similar to that of Si-based glass and is affected by the surface moisture conditions. In addition, the Cs release from the CsMPs is constrained by the rate-limiting dissolution of silicate matrix. Based on our results, CsMPs with ∼2 Bq, which can be potentially inhaled and deposited in the alveolar region, are completely dissolved after >35 years. Further, CsMPs could remain in the environment for several decades; as such, CsMPs are important factors contributing to the long-term impacts of radioactive Cs in the environment.
Stop the Low-Yield Trident Nuclear Warhead
On Tuesday [June 4], the House Subcommittee on Strategic Forces debated the draft Fiscal Year 2020 National Defense Authorization Act.
It voted out, on party lines, language that prohibits deployment of a low-yield warhead on the Trident D5 submarine-launched ballistic missile. That makes sense: The rationale for the warhead is dubious, and the weapon likely would never be selected for use.
Nuclear Security, Arms Control and the U.S.-Russia Relationship
This article originally appeared in the American Ambassadors Review (Spring 2019).
For nearly five decades, Washington and Moscow have engaged in negotiations to manage their nuclear competition. Those negotiations produced a string of acronyms—SALT, INF, START—for arms control agreements that strengthened strategic stability, reduced bloated nuclear arsenals and had a positive impact on the broader bilateral relationship.
That is changing. The Intermediate-range Nuclear Forces (INF) Treaty is headed for demise. The New Strategic Arms Reduction Treaty (New START) has less than two years to run, and the administration of Donald Trump has yet to engage on Russian suggestions to extend it. Bilateral strategic stability talks have not been held in 18 months.
On its current path, the U.S.-Russia nuclear arms control regime likely will come to an end in 2021. That will make for a strategic relationship that is less stable, less secure and less predictable and will further complicate an already troubled bilateral relationship.
Fifty Years of Arms Control
Bilateral nuclear arms control talks between Washington and Moscow began in 1969 with the Strategic Arms Limitation Talks (SALT). They resulted from a growing understanding that negotiated limits on the superpowers’ nuclear arms competition served the interests of both. Over the next five decades, arms control treaties and unilateral force decisions led the sides to reduce their active arsenals to 4,000-4,500 nuclear weapons each—down from a U.S. peak of more than 30,000 in the 1960s and a Soviet/Russian peak that exceeded 40,000 in the 1970s.
Early treaties such as the 1972 Interim Offensive Agreement and the 1979 SALT II Treaty (which never entered into force but whose limits were observed into the mid-1980s) merely slowed the growth of nuclear arsenals. Later treaties had a more dramatic impact. The 1987 INF Treaty banned the entire class of U.S. and Soviet land-based missiles with ranges between 500 and 5,500 kilometers. The 1991 START Treaty required the sides to reduce their accountable strategic nuclear warheads by some 40 percent while cutting strategic missile launchers and bombers by about 30 percent.
Arms control agreements often had a beneficial impact on the broader relationship. SALT helped advance détente in the early 1970s; progress on INF and START spurred an improvement in the overall U.S.-Soviet relationship in the late 1980s; and the relatively quick conclusion of New START gave a positive impulse to the Obama administration’s reset with Russia, even though the reset proved short-lived.
Today, the U.S.-Russian relationship has hit its lowest point since the end of the Cold War. Arms control, or the looming collapse of arms control, rather than helping, may contribute to a further deterioration of relations.
The Demise of the INF Treaty
The INF Treaty is on a death course. Russia violated the treaty by developing and deploying the 9M729, a prohibited intermediate-range cruise missile. Neither the Obama nor the Trump administration employed an effective strategy to persuade Moscow to return to compliance.
On October 20, 2018, President Trump announced that the United States would terminate the treaty, surprising allies and administration officials alike. NATO subsequently backed the U.S. decision, though European officials privately grumbled about a fait accompli. In early February, U.S. officials stated that they had suspended U.S. treaty obligations and given Russia the required six months’ notice of the U.S. intention to withdraw from the agreement. Russia then suspended its treaty obligations.
The United States could not remain forever in a treaty that Russia has violated. However, the way the Trump administration handled its departure amounted to diplomatic malpractice. Washington will get blamed for the treaty’s end.
There was a smarter way. First, U.S. officials should have informed their European counterparts in early 2018 that the United States would have no choice in 12–24 months but to leave the treaty if Russia did not correct its violation and urge them to apply political heat on the Kremlin, including at the highest level. Russia’s intermediate-range missiles cannot reach the United States; they threaten Europe and Asia.
Second, the U.S. military should have deployed conventionally armed air- and sea-launched cruise missiles to the European region to show that the Russian violation would not go unchallenged.
Third, NATO should have begun a study of long-term countermeasures, with one option being deployment in Europe of a conventionally armed U.S. intermediate-range ballistic missile. While the Alliance likely could not have found consensus to adopt that option, discussing it would have reminded military leaders in Moscow how much they disliked the U.S. Pershing II, whose deployment in West Germany in the 1980s proved key to securing the INF Treaty.
Fourth, U.S. officials should have indicated to their Russian counterparts that, if they addressed U.S. concerns about the 9M729 violation, the United States would consider ways to address Russian concerns that the Aegis Ashore missile defense facility in Romania could launch offensive missiles.
Would such steps have brought Russia back into compliance? Perhaps not, but they certainly would have increased the odds. Even if they did not succeed, they would have positioned Washington far better with its allies and put it in a stronger position to lay blame for the treaty’s end where it belonged—on Russia.
In the actual event, the Trump administration hardly tried. In January, Russian officials offered to exhibit the 9M729 to U.S. experts. U.S. officials could have taken that proposal and insisted on procedures for a meaningful exhibition. Instead, they flat out turned it down.
Much of the problem on the American side may lie with National Security Advisor John Bolton. He generally disdains arms control agreements as constraining U.S. capabilities and options (which is true, but they also constrain Russian capabilities and options). He had previously called for U.S. withdrawal from the INF Treaty.
Exhibitions of the 9M729 and Aegis Ashore facility could have opened a path to resolve each side’s compliance concerns, but Moscow and Washington have not shown the needed political will. It looks like the treaty will meet its demise in August.
Questions about the Future of New START
In contrast to the INF Treaty, Russia has complied with the limits of the 2010 New START Treaty, which required reductions by each country to no more than 1,550 deployed strategic warheads and no more than 700 deployed strategic missiles and bombers by February 2018. The United States also met the limits, though Russian officials question the adequacy of measures the U.S. military took to remove some strategic systems from treaty accountability.
New START by its terms will expire in February 2021, though the treaty allows extension for up to five years. Russian officials have proposed discussion of extension. In 2017, Trump administration officials said they would first have to complete the new nuclear posture review and see whether Russia met the February 2018 limits. Both of those boxes were checked more than a year ago. U.S. officials now say they are studying the question and see no rush.
New START extension should be a no-brainer. First, it would extend to 2026 the limits on Russian strategic forces and provide a mechanism to address new nuclear systems that the Russian military has under development. Second, extension would not affect U.S. strategic modernization plans, which the Pentagon designed to fit within New START’s limits. Third, extension would continue the flow of information that the U.S. military and intelligence community receive about Russian strategic forces from data exchanges, notifications and on-site inspections. That information lets the U.S. military make smarter decisions about how to equip and operate U.S. strategic forces.
When asked about extension, however, Bolton has raised two alternatives: renegotiation of New START or a treaty modeled on the 2002 Strategic Offensive Reductions Treaty (SORT). Neither holds much promise.
Renegotiation would allow Washington to try to improve New START, perhaps with additional verification measures or expanded limits to capture nuclear weapons not now covered by the treaty. But Moscow would seek changes as well, starting with limits on missile defense and conventional strike systems, both of which are anathema to the Trump administration. Renegotiation would take a long time and have, at best, an uncertain prospect of success.
As for the SORT model, SORT limited just warheads (though with no verification measures); it did not constrain strategic missiles and bombers. While Moscow accepted such an agreement in 2002, Russian officials since 2008 have made clear that a strategic arms control agreement must limit missiles and bombers, as does New START.
Bolton opposed New START when the Senate discussed its ratification back in 2010. Neither Secretary of State Mike Pompeo nor Acting Secretary of Defense Patrick Shanahan seem to be advocates for the treaty. Although extension would be very much in the U.S. interest, the Trump administration appears inclined to let it expire.
No Strategic Stability Talks
U.S. and Russian officials in the past have held strategic stability talks to take a broad look at developments that affect their strategic relationship. Such talks are useful, particularly when new developments, such as those in the cyber and space domains, emerge and when Russian nuclear doctrine has provoked concern in Washington and led to changes in the U.S. nuclear posture. Even if strategic stability talks do not spin off specific negotiations, they provide a venue for the sides to exchange views and better understand the concerns of the other.
During the Trump administration, a one-day session of strategic stability talks took place in September 2017. As of March 2019, it has not agreed to a second meeting.
An Unsettling Future
For most of the five decades of U.S.-Soviet/Russian arms control negotiations, the American side took the lead. Moscow often struck a pose not of disinterest, but of less interest—likely for bargaining purposes. That is no longer the case. The Kremlin now faces a White House that attaches as little priority to reducing arms as it does—perhaps less. The U.S. President evinces no understanding of arms control, while his national security advisor apparently seeks to end it.
With the INF Treaty all but dead, New START’s fate uncertain after 2021 and no sign of new initiatives on either side, arms control as practiced for some 50 years may be coming to an end or, at a minimum, to a pause. That occurs at a time when Russia and the United States have significant nuclear modernization programs underway. While the bulk of those programs aim primarily to replace old weapons with new ones, the sides are also developing nuclear capabilities that neither previously had in its arsenal. Economic constraints may limit an all-out arms race, but the strategic nuclear relationship seems headed for uncharted territory.
The end of the U.S.-Russian nuclear arms control regime would have wider impacts. If the two nuclear superpowers no longer are reducing—and no longer limiting—their nuclear arms, what credibility will they have to insist that other countries, such as North Korea, forgo nuclear weapons or that third countries sanction proliferating states? Will China decide to adjust its nuclear posture and move from its current modest stockpile of under 300 weapons toward a larger and more diverse arsenal?
The current course will lead to a less stable and secure world. The United States and Russia will be less able to predict future developments on the other side and thus will have to make expensive worst-case assumptions. It will make for a more complex and dangerous relationship. Perhaps then they will recall the lessons of the 1960s and 1980s that arms control, however imperfect, can offer a useful tool for managing great power competition.