Reports & Papers

The first half century of the nuclear age witnessed the gradual construction of a global nuclear order designed to mitigate nuclear dangers, inhibit arms racing, and prevent the spread of nuclear weapons to additional states. Spurred by the experiences, the dangers, the crises, the near misses, and the frightening risks on display in the early years of the Cold War, sustained efforts were made, in McGeorge Bundy’s vivid phrase, “to cap the volcano.” The time had arrived, Bundy wrote in 1969, for the two great nuclear superpowers “to limit their extravagant contest in strategic weapons,” a contest that had “led the two greatest powers of our generation into an arms race totally unprecedented in size and danger.” In the subsequent twenty-five years after Bundy’s appeal, an increasingly elaborate and institutionalized arms control process produced, with many ups and downs, a detailed web of constraints on the nuclear behavior of the superpowers. The articulated goal was to stabilize the superpower nuclear balance by reinforcing mutual deterrence. The vast nuclear arsenals of the superpowers, however, were not the only source of nuclear danger. In a world in which the number of states armed with nuclear weapons was slowly growing and many additional states had interest in acquiring such weapons or the technology to produce them, there was reason, as Albert Wohlstetter warned in 1961, to be “concerned with the enormous instabilities and dangers of a world with many nuclear powers.” Such a world—“life in a nuclear armed crowd”—Wohlstetter wrote in a later famous study, was widely believed to be “vastly more dangerous than today’s world.” The desire to prevent this unattractive world led to the negotiation of the Nuclear Nonproliferation Treaty (NPT), which entered into force in 1970, and to the subsequent development of an associated regime intended to create legal and technical barriers to the spread of nuclear weapons. Thus, in reaction to the major perceived dangers of the nuclear age, there emerged what Lawrence Freedman calls the “twin pillars” of the global nuclear order: mutual stability in the major nuclear rivalry and nonproliferation to inhibit or prevent the spread of nuclear weapons to additional states.

With concerns and uncertainties regarding Iran’s nuclear future persisting to this day, this paper seeks to review the TRR negotiations and the context in which they unfolded in order to capture some of the lessons of negotiating with Iran regarding its nuclear program, primarily from the viewpoint of senior U.S. officials involved at the time. The paper is also informed by the personal perspective of one of the authors (Poneman) who led the U.S. delegation in the 2009 Vienna talks, and who, prior to this publication, had not publicly elaborated on his experience. The other author (Nowrouzzadeh), who supported the TRR talks in an analytical capacity within the U.S. Department of Defense, also conducted an extensive interview with Poneman as part of their collaboration on this paper. By drawing on existing literature and recent interviews with several senior U.S. officials involved in the negotiations now that over ten years have passed, the authors seek to draw useful lessons from this episode that can assist policymakers in understanding Iran’s nuclear decision-making and in their continued efforts to shape the future trajectory of Iran’s nuclear program.

Fueled by aggressive rhetoric from both capitals, Indian and Chinese ground forces engaged in a standoff between June and August 2017. The Doklam crisis, as it became known, stimulated introspection among officials and experts in both states about the future of their relationship. Politically, both strategic communities largely concluded that the peaceful resolution of border disputes is now less likely, forecasting more rivalry than cooperation. Militarily, Indian discussions on the strength of its military position against China in their disputed ground frontier areas have converged on the view that China holds the conventional and nuclear edge over India in this domain.

Based on our analysis of data on the location and capabilities of Indian and Chinese strategic forces and related military units, we conclude that this assessment of the balance of forces may be mistaken and a poor guide for Indian security and procurement policies. We recommend that instead of investing in new nuclear weapons platforms that our analysis suggests are not likely to be required to deter China, New Delhi should improve the survivability of its existing forces and fill the gap in global arms control leadership with an initiative on restraint and transparency.

The evolving strategic dynamics in the Indo-Pacific are of paramount importance for the future of the rules-based international order. While the United States is redirecting strategic focus to the region as part of its Free and Open Indo-Pacific strategy, Europe is also stepping up its role—leveraging a strong economic profile, long-standing bilateral ties, and active engagement in various regional multilateral forums. The European Union (EU) and its member states can make distinct contributions to an open, transparent, inclusive, and rules-based regional order, though not necessarily always in lockstep with Washington.