A few Senators are preventing US inspectors from verifying the status of Russian nuclear weapons.

By Hans M. Kristensen

The ability of a few Senators to delay ratification of the New START treaty is gambling with national and international security.

At home the delay is depriving the U.S. intelligence community important information about the status and operations of Russian strategic nuclear forces. And abroad the delay is creating doubts about the U.S. resolve to reduce the number and role of nuclear weapons, doubts that could undermine efforts to limit proliferation.

New START may not be the most groundbreaking treaty ever, but it is a vital first step in moving U.S.-Russian relations forward and paving the way for additional nuclear reductions and nonproliferation efforts. Essentially all current and former officials and experts recommend verification of New START, and after more than 20 hearings and nearly 1,000 detailed questions answered it is time for the Senate to ratify the treaty.

Important Inspections

Ratification would set in motion a wide range of data exchange and on-site inspection activities. By delaying ratification, the Senators are depriving the U.S. intelligence community important information about Russian nuclear forces. Apart from monitoring how Russian strategic nuclear forces are evolving and operating, the information is important to avoid worst-case threat assessments that can negatively affect U.S.-Russian relations.

It has now been 348 days since the last U.S. inspection team left Russia.

During the 15 years the START Treaty was in effect between 1994 and 2009, U.S. teams conducted 659 inspections of Russian nuclear weapons facilities; Russian conducted 481 inspections of U.S. facilities.

The last U.S. on-site inspection took place on November 18-19, 2009, at an SS-25 mobile missile base near Teykovo, approximately 130 miles (210 km) northeast of Moscow.

Russian Missile Garrison Near Teykovo

Mobile missile base at Teykovo being upgraded, possibly for deployment of first SSn-27 Mod 2 (RS-24) mobile missiles with multiple warheads. This satellite image was taken on September 14, 2009, about one month before the U.S. inspection team arrived to conduct the final START inspection in the area. U.S. Senators are preventing the inspectors from returning. Click image to see large version.

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That inspection had special meaning because the SS-25 is being phased out from this area and replaced with the new SS-27. While each SS-25 is equipped with one warhead, the SS-27 comes in two versions: one with a single warhead and one with three warheads. The U.S. intelligence community calls the latter the SS-27 Mod 2, while the Kremlin named it RS-24 so as to avoid conflict with the now expired START treaty.

One of the four bases at Teykovo has already been equipped with the SS-27 Mod 2, two still have the SS-25, while the fourth base has been emptied and might be converting to the newer missile. Within the next decade, all four bases may be equipped with the SS-27 Mod 2.

The Russians chose Whiteman Air Force Base in Missouri for their final on-site inspection in the United States. That inspection took place on December 1-2, 2009, just two days before the treaty expired.

B-2 of the 509th Bomb Wing over Whiteman AFB

Russia chose the B-2 base at Whiteman Air Force Base as its final inspection in the United States under the now expired START treaty.

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The Nonproliferation Gamble

From the outset, the Obama administration appears to have seen Russia as the main potential obstacle to the treaty, rather than the U.S. Senate. Absent a strategy to secure the votes for ratification early on, the tables have now turned; with the White House desperate to secure ratification, a few Senators who still see Russia through Cold War lenses have effectively managed to use hearings and voting rules to extort concessions (read: money) from the administration to modernize the nuclear weapons production complex and delivery systems.

Senator Jon Kyl

A few senators, most prominently Senator Jon Kyl (R-Arizona), have managed to delay ratification of the New START treaty.

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The administration quickly agreed to boost the FY 2011 budget for the National Nuclear Security Administration (NNSA) well above the FY 2010 level. But that didn’t satisfy the Senators. So when Congress was unable to approve the budget before the mid-term election, the administration agreed that a Continuing Resolution (CR) designed to keep federal agencies operating at FY2010 budget levels through December 3rd would include an exemption for NNSA’s weapons program to fund the agency at the higher FY 2011 budget request – about $7 billion or an additional $625 million. But since the provisions in the defense appropriations bill and report don’t apply to the CR, the appropriators have lost control of how the funds are used; Congress is basically providing NNSA with a blank check to spend the $7 billion.

In addition, in an effort to buy the Senators’ votes for ratification during the “lame duck” session before the new Congress begins, the administration has offered $600 million more for the FY 2012 NNSA budget above FY 2011 levels, as well as an additional $3.6 billion spread out over FY 2013-2016.

Altogether, in a nuclear spending spree that would have been inconceivable during the Bush administration, the Obama administration plans to spend well over $180 billion to modernize nuclear weapons delivery systems and production facilities over the next decade.

There is a real risk that in the coming years, this modernization could backfire and undermine the second pillar of U.S. nuclear policy: strengthening nonproliferation.

The reason is simple: U.S. nonproliferation efforts dependent upon international support, but if the international community sees the increased nuclear modernizations as contradicting the U.S. pledge to work toward nuclear disarmament, some countries may well decide not to support the administration’s nonproliferation agenda.

This risk could be compounded later this week if NATO approves a new Strategic Concept that reaffirms the importance of nuclear weapons – and fails to order the withdrawal of the remaining tactical nuclear weapons from Europe.

The Senate needs to demonstrate that it understands that the Cold War is over and that it cares more about national and international security than politics by ratifying the New START treaty before Christmas. And the administration must be careful to balance its nuclear modernization plans with the need to sustain the vision of nuclear disarmament that so inspired the international community just 18 months ago.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

The Senate should vote on the New START during the “lame duck” session.

The New START arms control treaty, negotiated between the United States and Russia and signed by the presidents of both countries last April, is awaiting ratification by the United States Senate.   Objections to the treaty rest primarily upon misunderstandings or misrepresentation.  In addition, though, some opponents of the treaty are arguing that, whether one supports or opposes the treaty, it is improper for the Senate to vote on the treaty during the post-election or “lame duck” session of Congress.  But there is neither a constitutional nor a commonsense reason to delay a vote.

Some of us who hope to dramatically and rapidly reduce the salience of nuclear weapons were disappointed that the treaty was rather modest, but it clearly moves in the right direction.  This treaty is not a radical departure from past treaties, it is not even a post-Cold War treaty;  it is an extrapolation of the Cold War SALT and START treaties stretching back to the days of the Soviet Union.  Given the current strategic security environment, neither Richard Nixon, nor Ronald Reagan, nor George H. W. Bush would blink an eye at this treaty. (more…)

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By Hans M. Kristensen

It’s interesting scary what you can find on the Internet: On Thursday, a Canadian calling himself SinoSoldier posted a report on the Pakistani web site Pakistan Defense claiming that China had test launched a JL-3 submarine-launched ballistic missile (SLBM) from a submarine in the Atlantic (!). Different versions allegedly have ranges from 12,000 km to 20,000 km and carry 5-7 warheads as opposed to 10 on the JL-2 SLBM. The source was said to be a report in the Japanese newspaper Yomiuri Shimbun.

Click image to download

I haven’t been able to find the original story, but the report in Pakistan Defense is completely wrong: China does not have a JL-3 missile; it does not have a Type 096 submarine; it has never operated a submarine in the Atlantic; its two types of SLBMs (JL-1 and JL-2) have ranges of 1,770 km and 7,200 km, respectively; and they are only equipped with one warhead each.

The flaws in the report unfortunately did not prevent it from being picked up by Undersea Enterprise News Daily, an email newsletter distributed by the U.S. Atlantic submarine fleet headquarters.

Instead, check out our latest Nuclear Notebook on Chinese nuclear forces, just published for the Bulletin of the Atomic Scientists by Sage Publications: Chinese Nuclear Forces, 2010 (pdf version)

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

Because of what appears to have been a computer glitch, a group of nuclear-armed intercontinental ballistic missiles (ICBMs) was temporarily off-line last week and not ready to launch on a moment’s notice. According to an article in The Atlantic, some Republicans have suggested that this means that New START, the nuclear arms control treaty awaiting Senate ratification, is unwise and should be rejected. This assertion is nonsense but is a useful illustration of how much of current nuclear “thinking” is just a holdover from now irrelevant Cold War doctrine. (more…)

The author next to a B53 shape outside the Atomic Museum in Albuquerque, NM. This open-air display is located at these coordinates: 35° 3’54.78″N, 106°32’7.09″W.

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By Hans M. Kristensen

The National Nuclear Surety Administration (NNSA) has announced that it has authorized the Pantex Plant in Texas to begin dismantlement of the B53 nuclear bomb.

Everything about the B53 is big: it weighs as much as a minivan and has an explosive yield of nine megatons, equivalent to 600 Hiroshima bombs.

Initially designed to annihilate Soviet cities, the large yield later earned the B53 one of the longest careers in the U.S. nuclear arsenal as a nuclear shovel; literally to dig up Soviet underground command bunkers. The mission was seen as so important that the B53 was even saved from an earlier retirement and allowed to serve for another decade until 1997 even though the Pentagon knew it had serious safety and security flaws.

Characteristics

The B53 is a two-stage thermonuclear bomb with a nuclear yield of nine megatons. At 148 inches (3.8 m) long and 50 inches (1.3 m) in diameter, the whole bomb weighs approximately 8,850 pounds (4 tons).

“Exploded” B53 Bomb Components

The behemoth B53 weighed as much as a minivan and had a yield of nine megatons. It’s mission was to destroy deeply buried facilities with enormous radioactive fallout as a consequence. Drawing obtained under the Freedom of Information Act.

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Approximately 340 B53s of two versions (Mod 0 and Mod 1) were produced between 1962 and 1965. The bomb weighs as much as a minivan and could only be delivered by the B-52 bomber, each of which could carry two of the behemoth weapons.

The B53 only had a laydown option and was timer armed and fired so the delivery bomber had time to get away before detonation.

The large yield could destroy facilities buried 750 feet (230 meters) underground.

History

The B53 was on continuous airborne alert onboard B-52 bombers between 1962 and 1968, when about a dozen bombers were kept in the air 24 hours a day loaded with fully ready nuclear weapons to ensure the Soviet Union couldn’t disarm the United States in a first strike. After the airborne alert was canceled, the B53 was on ground-alert until retirement first began in 1987.

But that retirement coincided with the retirement of the high-yield Titan II ICBM in June 1987, another nine-megaton weapon used to hold Soviet underground facilities at risk. So the Joint Chiefs of Staff in March 1987 directed Strategic Air Command to return B53s to B-52 bombers on alert:

“In order to hold selected deeply targets at risk in all scenarios, a day-to-day alert capability is required. The current capability will be lost when the last Titan II ICBM is deactivated on Jun [sic] 87. Therefore, a B53 ALFA Alert capability must be developed as soon as possible.”

One of these targets probably was the nuclear command and control center under Kosvinsky Mountain in central Russia.

The B53 stayed on alert until 1991, when the bomber ground alert was finally cancelled.

Unsafe but Important

The B53 was not built with modern safety features, although it was one-point safe (detonation of any one chemical high explosives would not produce a nuclear yield). And over its many years in the stockpile some basic safety design features were added to the weapon to enhance nuclear explosive safety, for example to prevent accidental electrical energy from lightning to trigger the weapon. But the B53 did not have Enhanced Nuclear Detonation Safety (ENDS), Insensitive High Explosive (IHE), Fire-Resistant Pit (FRP), Protective Action Link (PAL), or Command Disable (CD).

The government had known about safety issues in the B53 “for twenty years,” former Sandia Director Paul Robinson later stated. But holding a few high-priority Soviet underground targets at risk was considered so important that safety requirements were waived, allowing the B53 to remain in the stockpile.

Legislation passed by Congress in 1992 specified three modern safety features that should be incorporated into all U.S. nuclear warheads: ENDS; IHE; FRP. The nuclear weapons stockpile plan from early 1993 directed the retirement of all warheads that lacked ENDS.

So in July 1993, then DOE Deputy Assistant Secretary for Military Application (Defense Programs) Winford Ellis “strongly recommended” to Harold Smith, the Assistant to the Secretary of Defense (Atomic Energy), that the B53 bomb be retired “at the earliest possible date.” The weapon “has no assured level of nuclear safety in a broad range of multiple abnormal environments.”

In addition to safety issues, the B-52 bomber was no longer considered capable of penetrating the most advanced air defense systems, so U.S. Strategic Command wanted a modern nuclear bunker-buster capability on the B-2 stealth bomber.

The B53 Replacement: The B61-11

The B-2 delivered B61-11 nuclear earth-penetrator (above, with spin motors in drop test) replaced the B-52 delivered B53 in 1997, improving the ability to penetrate modern air defenses and attack deeply buried facilities such as Russian command bunkers.

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The September 1994 NPR recommended replacing the B53 with a new bunker-buster, which eventually became the B61-11, a modified version of the B61-7 with earth-penetrating capability and increased yield. As the B61-11 entered the stockpile in 1997 on the B-2 bomber, the B53 was finally retired for the second time.

Only one other warhead, the W62 on the Minuteman III ICBM, had worse surety features than the B53. The W62 was allowed to remain in service until 2009.

That Good Old Nuclear Secrecy

Now, don’t hold your breath to be told how many B53s are being dismantled. After the Obama administration in May declassified the entire history of the size of the nuclear weapons stockpile as well as the number of warheads dismantled each year, mysterious national security now requires the government to keep secret the number of B53s to be dismantled at Pantex. Some things never change.

Excessive secrecy aside, the number of B53s to be dismantled is approximately 36.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

Panelists from left: Hans M. Kristensen (FAS), John Hallam (Nuclear Flashpoint), Dell Higgie (New Zealand Ambassador for Disarmament), Christian Schoenenberger (Swiss UN Mission), Col Valery Yarynich (Institute of the United States and Canada, Russian Academy of Sciences), Stephen Starr (Physicians for Social Responsibility)

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By Hans M. Kristensen

On Wednesday, October 13^th, I gave a briefing at the United Nations on the status of U.S. and Russian nuclear forces in the context of the interesting article Safe and Smaller recently published in Foreign Affairs.

One of the co-authors, Valery Yarynich, a retired colonel who served at the Center for Operational and Strategic Studies of the Russian General Staff, spoke about the main conclusion of the article: that is possible to significantly reduce the alert-level of U.S. and Russian strategic nuclear weapons without creating risks of crisis instability.

That conclusion directly contradicts the Obama administration’s recently completed Nuclear Posture Review, which rejected a reduction of the alert rates for land- and sea-based ballistic missiles because, “such steps could reduce crisis stability by giving an adversary the incentive to attack before ‘re-alerting’ was complete.”

The panel coincided with the meeting of the First Committee of the General Assembly, during which New Zealand submitted a resolution on decreasing the operational readiness of nuclear weapons.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

The compact W84 warhead (left) was designed to be delivered by the ground-launched cruise missile. Some 380 W84s are awaiting dismantlement – or reuse.

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By Hans M. Kristensen

The National Nuclear Security Administration (NNSA) recently announced that disassembly of the W84 warhead has begun at the Pantex Plant in Texas.

This marks the final phase for a group of 400 warheads that were at the center of the Cold War in Europe as part of NATO’s Double Track Decision in 1979 to deploy intermediate-range weapons in response to Soviet deployments. The W84 armed the Ground-Launched Cruise Missile (GLCM) that was eliminated by the 1987 INF Treaty.

Redundant before production was completed in 1988, the W84 spent the rest of its life on shelves in military warehouses in the United States. The NNSA press release states that the W84 “remains in the inactive stockpile,” but the weapon was formally retired in 2006-2007, and neither the DOE budget request for FY2011 nor the latest Stockpile Stewardship Management Plan (SSMP) lists the W84 as part of the DOD stockpile. NNSA told me they would correct the press release.

The W84 was and probably is the safest of all the warhead types produced by the United States. It is equipped with more safety and security (surety) features than any other warhead: Insensitive High Explosives; Fire Resistant Pit; Enhanced Nuclear Detonation Safety (ENDS/EEI) with detonator stronglinks; Command Disable; and the most advanced Permissive Action Link (PAL G).

Relative Surety of U.S. Nuclear Warheads

The W84 is the equipped with more safety and security features (surety combined) than any other warhead in the U.S. stockpile. The W84 was retired in 2006-2007.

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It may seem as an irony that the safest warhead is being scrapped at a time when the administration is asking Congress to authorize billions of dollars to increase the safety and security of the remaining warheads in the stockpile. But there is a twist.

A few years ago, dismantlement at Pantex would have meant the end for the W84. But the Obama administration’s Nuclear Posture Review decided that the “full range of LEP approaches will be considered: refurbishment of existing warheads, reuse of nuclear components from different warheads, and replacement of nuclear components.”

As a result, the W84 – and all other retired warheads currently in line for dismantlement – “will be assessed for reuse applications as appropriate,” NNSA told me.

Therefore, they said, “it would be premature to assume that components from the W84 operations will be for immediate disposal (scrapping).”

So who knows, one day the W84 – or components of it – might be deployed once again as part of a replacement warhead.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

China’s new DF-21C missile launcher shows itself in Western China.    Image: GoogleEarth

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By Hans M. Kristensen

The latest Pentagon report on Chinese military forces recently triggered sensational headlines in the Indian news media that China had deployed new nuclear missiles close to the Indian border.

The news reports got it wrong, but new commercial satellite images reveal that launch units for the new DF-21C missile have deployed to central-western China.

New DF-21C Launch Units

Analysis of commercial satellite imagery reveals that launch units for the road-mobile DF-21C medium-range ballistic missile now deploy several hundred kilometers west of Delingha in the western part of central China.

Location of DF-21C Launch Units

For larger versions of the two middle satellite images, click here and here.  Images: GoogleEarth and chinamil.com.cn

In one image, taken by the GeoEye-1 satellite on June 14, 2010, two launch units are visible in approximately 230 km west of Delingha. The units are dug into the dry desert slopes near Mount Chilian along national road G215. Missile launchers, barracks, maintenance and service units are concealed under large dark camouflage, which stands out clearly in the brown desert soil.

The eastern launch unit (38° 6’37.75″N, 94°59’2.19″E) includes a central area with red barracks clearly visible below the camouflage, which probably also covers logistic units such as communications vehicles, fuel trucks, and personnel carriers. An 88×17 meter garage of brown camouflaged probably covers the launcher service area, with five 15-meter garages nearby probably housing the TELs. Approximately 130 meters north of the central area, brown camouflage and dirt barriers possibly house the unit’s remote fuel area. Two launch pads are visible, one only 180 meters from the main section, the other on the access road leading to national road G215.

The western launch unit (38° 9’32.82″N, 94°55’37.02″E) is located approximately 7 km further west about 2.4 km to the north of national road G215. The unit consists of four sections: personnel barracks (almost 100 with more possibly under camouflage); a logistic vehicles area; a launcher service area with a 90×33 meter camouflage and four garages; and what is possibly a remote fuel storage area. A launch pad is located along the access road close to G215.

The satellite image shows what appears to be a DF-21C entering or leaving the camouflaged launcher service area. The characteristic nose cone of the missile canister embedded into the rear of the driver cockpit is clearly visible, with the rest of launcher probably covered by a tarp.

This is, to my knowledge, the first time that the DF-21C has been identified in a deployment area. In 2007, I used commercial satellite images to describe the first visual signs of the transition from DF-4 to DF-21 at Delingha. A second article in 2008 described the extensive system of launch pads that extends west from Delingha along national road G215 past Da Qaidam.

There are five launch pads within five miles of the two launch units, with dozens other pads along and north of G215 in both directions.

More Invulnerable but with Limits

China’s ongoing modernization from old liquid-fuel missiles to new solid-fuel missiles is getting a lot of attention. The new systems are more mobile and thus less vulnerable to attack. Yet the satellite images also give hints about limitations.

First, the launch units are large with a considerable footprint that covers an area of approximately 300×300 meters. They are manpower-intensive requiring large numbers of support equipment. This makes them harder to move quickly and relatively easy to detect by satellite images.

DF-21C Launch Unit on the Move

The DF-21C medium-range ballistic missile may be more mobile and harder to target than older missiles, but it still relies on a large support unit that can be detected. Image: CCTV-7

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Individual launchers of course would be dispersed into the landscape in case of war. But although the road-mobile launcher has some off-road capability, it requires solid ground when launching to prevent damage from debris kicked up by the rocket engine. As a result, launchers would have to stay on roads or use the pre-made launch pads that stand out clearly in high-resolution satellite images. Moreover, a launcher would not simply drive off and launch by itself, but need to be followed by support vehicles for targeting, repair, and communication.

Indian News Media (Mis)reporting

The deployment of DF-21 missiles caused constipation in Indian last month after the 2010 Pentagon report of Chinese military forces stated that China is replacing DF-4 missiles with DF-21 missiles to improve regional deterrence. The statement was contained in a section dealing with Chinese-Indian affairs and was picked up by the Press Trust of India, which mistakenly reported that the Pentagon report stated that, “China has moved advanced longer range CSS-5 [DF-21] missiles close to the border with India.” The Times of India even wrote the missiles were being deployed “on border” with India.

India News Media Makes a Bad Situation Worse

The India news media significantly misreported what the Pentagon report said about the Chinese DF-21 deployment. Not the finest hour of Indian journalism.

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Not surprisingly, the misreporting triggered dramatic news articles in India, including rumors that the Indian Strategic Forces Command was considering or had already moved nuclear-capable missile units north toward the Chinese border in retaliation.

The Pentagon report, however, said nothing about moving DF-21 missiles close to or “on” the Indian border. Here is the actual statement: “To improve regional deterrence, the PLA has replaced older liquid-fueled, nuclear-capable CSS-3 intermediate-range ballistic missiles with more advanced and survivable solid-fueled CSS-5 MRBM….” The statement echoes a statement in the 2009 report: “The [People’s Liberation Army] has replaced older liquid-fueled nuclear-capable CSS-3 [DF-4 medium-range ballistic missiles] MRBMs with more advanced solid-fueled CSS-5 MRBMs in Western China.”

The sentence appears to describe the apparent near-completion of China’s replacement of DF-4 missiles with DF-21 missiles, probably at two army base areas in Hunan and Qinghai provinces, a transition that has been underway for two decades. The two deployment areas are each more than 1,500 kilometers from the Indian border.

Range Confusion

The unclassified ranges of Chinese DF-21 versions published by the U.S. intelligence community are 1,770+ km (1,100+ miles) for the two nuclear versions (DF-21, CSS-5 Mod 1; and DF-21A, CSS-5 Mod 2). The DF-21A appears to have an extended range of 2,150 km. The dual-capable “conventional” DF-21C has a maximum range of 1,770 km, and the yet-to-be-deployed DF-21D anti-ship missile has a shorter range of 1,450+ km. Private publications frequently credit the DF-21D with a much longer range (CSBA: 2,150 km; sinodefence.com and Wikipedia: 3,000 km).

DOD maps are misleading because they depict missile ranges measured from the Chinese border, as if the launchers were deployed there rather than at their actual deployment areas far back from the border. The 2008 report, for example, includes a map essentially showing China’s border extended outward in different colors for each missile range. The result is a DF-21 range of about 3,000 km if measured from the actual deployment areas.

DF-21 Range According to 2008 Pentagon Report

The 2008 Pentagon report on China’s military forces misrepresents missile ranges.

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The 2010 report is even worse because it shows the ranges without the border contours as circles but measured from the most extreme border position. The result is a map that is even more misleading, suggesting a DF-21 range of as much as 3,500 km from actual deployment areas. The actual maximum range is 2,150 km for DF-21A (CSS-5 Mod 2), and 1,770 km for the DF-21C.

DF-21 Range According to 2010 Pentagon Report

The 2010 Pentagon report on Chinese military issues greatly exaggerates the reach of the DF-21 by drawing a ring around China that doesn’t reflect actual deployment areas.

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Although a DF-21 launcher could theoretically drive all the way up to the border to launch, the reality is that DF-21 bases and roaming areas are located far back from the border to protect the fragile launchers from air attack. DOD maps should reflect that reality.

Additional Resources: earlier China blogs; Chinese Nuclear Forces and U.S. Nuclear War Planning

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

By Hans M. Kristensen

The next steps in European security should include additional reductions in the number short-range nuclear weapons in Europe, according to a video statement issued by NATO General Secretary Anders Fogh Rasmussen:

“We also have to make progress sooner or later in our efforts to reduce the number of short-range nuclear weapons in Europe. NATO has cut the number of short-range nuclear weapons in Europe by over 90 percent. But there are still thousands of short-range nuclear weapons left over from the Cold War and most of them are in Russia. NATO is not threatening Russia and Russia is not threatening NATO. Time has come to lay this Cold War thinking to rest and focus on the common threats we face from outside: terrorism, extremism, narcotics, proliferation of missiles, weapons of mass destruction, side by side, and piracy. We can make progress of all three tracks – missile defense, conventional forces, and nuclear weapons – and create a secure Europe. It is time to stop spending our time and resources watching each other and look outward at how to reinforce our common security hope.”

That vision appears similar to the “new regional deterrence architecture” that several recent Obama administration reviews concluded would permit a reduction of the role of nuclear weapons. With that in mind, and Rasmussen’s conclusion that “Russia is not threatening NATO” and that the “time has come to lay this Cold War thinking to rest,” it should be relatively straightforward for him to recommend a withdrawal of the remaining U.S. nuclear weapons from Europe.

Unfortunately, rather than taking the initiative to complete the withdrawal of U.S. short-range nuclear weapons from Europe – a process that have been underway now for two decades but held up by Cold War thinking and NATO bureaucrats, Rasmussen instead appears to weave the future of the weapons in Europe into a web of new conditions that must be met first. In a speech at the Aspen Institute in Rome, Rasmussen described his three-track vision of collaborating with Russia on missile defenses, conventional weapons negotiations, and reducing short-range nuclear weapons:

“I think we have before us three tracks, which, if we follow them, will lead to a different, better and safer Europe: where we don’t look over our shoulders for someone else’s tanks or fighters; where missile defences bind us together, and protect us too; and where steadily, the number of short-range nuclear weapons on the continent is going down.”

Nuclear reductions appear to be the third track, after missile defense collaboration and conventional arms negotiations with Russia. For two decades, NATO has insisted the U.S. nuclear weapons in Europe have no military mission and that they’re not linked to Russia. The alliance has repeatedly been capable of and willing to make unilateral reductions – even complete withdrawal from Greece and the United Kingdom – without conditions or demanding reductions in Russian short-range nuclear weapons.

So why start linking reductions to Russia now?

Doing so seems to turn back the clock to the Cold War when NATO looked to Russia’s military forces to determine its nuclear posture in Europe. If the conclusion that “Russia is not threatening NATO” is more than words, then why make a three-track vision that assumes that Russia’s short-range nuclear weapons threaten NATO? Because the short-range weapons are not covered by any arms control regime, Rasmussen explains, the lack of transparency “makes allies cautious.”

There are certainly many good reasons to want to try to secure and reduce Russian short-range nuclear weapons. But if Russia is not threatening NATO, then Russian and U.S. short-range nuclear weapons should be addressed as a generic arms control challenge and not one that is linked to whether the U.S. has nuclear weapons in Europe or not.

Did They Lay Cold War Nuclear Thinking to Rest?

During his meeting with Italian defense minister Ignazio La Russa, did Rasmussen discuss the possibility of a withdrawal of U.S. nuclear weapons from Europe, including Italy, or just the threat of Russian short-range nuclear weapons?

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If NATO unilaterally withdrew the remaining U.S. nuclear weapons from Europe, what would happen?

Would Russia decide that it didn’t have to reduce its short-range nuclear weapons? Hardly, since those forces seem to be more tied to Russia’s perception of NATO’s conventional superiority and a need to safeguard the long border with China. Besides, many of the Russian weapons are so old that they’re likely to be retired soon.

Would Russia get an advantage in a hypothetical crisis with NATO? Hardly, since it would require that Russia ignores NATO’s conventional superiority and U.S., British, and French long-range nuclear forces.

Would Russia decide that it had more freedom to deploy conventional forces on NATO periphery? Hardly, since such decisions seem to be made regardless of U.S. nuclear weapons in Europe.

Would Iran somehow conclude that it could take additional steps acquiring nuclear weapons capability? Hardly, since its security assessment is not affected by whether the U.S. deploys nuclear weapons in Europe and it would still face serious consequences if it developed – certainly if it used – nuclear weapons.

Would Turkey and Eastern European NATO members conclude that NATO’s security guarantee was no longer credible and begin building nuclear weapons? Hardly, since their assurance is much more determined by conventional forces and political relations, and, to the limited extent nuclear forces play any role, the long-range forces of the United States, Britain, and France, would be more than adequate for any realistic scenario. Moreover, any NATO member country that began to develop nuclear weapons would face enormous pressure from the international community and from within NATO itself.

To the extent that some officials in some eastern European NATO countries feel uneasy about the inevitable withdrawal of U.S. short-range nuclear weapons from Europe, the obvious job for the Obama administration and the majority of NATO countries that favor a withdrawal is a concerted effort to educate those officials about the significant conventional and long-range nuclear capabilities that will continue to provide security when the short-range weapons are withdrawn. The revised Strategic Concept to be adopted at the Lisbon Summit in November is expected to reaffirm a role for nuclear weapons in NATO.

Rasmussen would do more for European security if he tried to decouple the future of U.S. nuclear weapons in Europe from the need to reduce and eventually eliminate short-range nuclear weapons in general. Doing so would indeed be to “lay this Cold War thinking to rest.”

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

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By Hans M. Kristensen

Similar to Russia’s troubled Bulava sea-launched ballistic missile, the Pentagon’s latest report on China’s military power reveals that Chinese efforts to develop a new sea-based nuclear missile have run into problems.

Other nuclear force developments described in the Pentagon’s delayed annual report on China’s military power, now renamed Military and Security Developments Involving the People’s Republic of China, include a slow deployment of new land-based mobile missiles and nuclear command and control challenges.

Naval Nuclear Programs

While the first boat of a small class of new Jin-class (Type 094) sea-launched ballistic missile submarines “appears ready” and up to four more may be building, development of the long-range ballistic missile Julang-2 for the class is said to have “encountered difficulty.”

The report reveals that the new missile has been “failing several of what should have been the final round of flight tests.”

Julang-2 “Dry” Launch

The Pentagon says China’s new sea-launched ballistic missile has failed several tests.

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The latest setback continues the problems that have characterized China’s naval nuclear program over the years. The first SSBN program (Type 092) only produced one boat, the Xia, which has never sailed on a deterrent patrol. Even following a recent lengthy submarine overhaul, the Pentagon describes the operational status of the Xia’s Julang-1 missile system as “questionable.”

The nuclear-powered attack submarine program also seems challenged, with only two Shang-class (Type 093) boats operational – the same as last year – and four old Han-class (Type 091) boats still in service. Instead, the focus of the nuclear attack submarine program appears to have shifted to building a new class, the Type 095. The Pentagon report projects that “up to five” Type 095s may be added “in the coming years.”

Land-Based Nuclear Missiles

Introduction of new land-based mobile ballistic missiles continues, but at a slow pace. The DF-31 program appears stagnant at “<10” missiles, the same as reported last year. The number of intercontinental DF-31As has only increased by a couple of missiles, from “<10” last year to “10-15” in this year’s report.

DF-31A Parading in Beijing

Deployment of the DF-31 and DF-31A has been slow, new Pentagon report shows.

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Probably as a possible result of the slow deployment of the new DF-31, the number of old liquid-fueled DF-3A and DF-4 missiles remain the same as last year.

Despite a strong display at the military parade in Beijing last year, the number of DF-21 launchers has not increased compared with last year. The number of missiles is a little higher, 85-90 missiles versus 60-80, probably reflecting addition of conventional DF-21C versions.

The report continues previous years’ predictions that a new road-mobile ICBM may be under development, possibly a reference to the elusive DF-41 or another system. The new missile is described as “possibly capable of carrying a multiple independently targeted re-entry vehicle (MIRV).”

Previous reports have reported development of MIRV technology for many years, but always concluded that MIRV technology for mobile missiles would be too difficult and expensive. The reference to a road-mobile ICBM MIRV capability is new, although it comes with a lot of caveats: “may be under development,” and “possibly capable of carrying” MIRV.

A MIRV system would, if deployed, represent a significant change in Chinese nuclear employment strategy. Russia and the United States deployed MIRVed systems to improve targeting against military targets. A secondary reason – for Britain it was probably the primary reason – was to overwhelm missile defenses.

Rather than increased targeting, the Chinese motivation for pursuing MIRV probably is the emergence of increasingly advanced U.S. ballistic missile systems. Phase 4 of the Obama administration’s Phased Adaptive Approach (PAA) includes an anti-ballistic missile defense capability against ICBMs from around 2020. This may push China further toward MIRV.

Julang-1 Loading

Could loading of nuclear missiles in a crisis affect crisis stability?

Nuclear Command and Control

As were the case with the 2009 report, the 2010 report underscores the command and control issues facing Chinese leaders. “The introduction of more mobile systems will create new command and control challenges for China’s leadership, which now confronts a different set of variables related to deployment and release authorities.”

One of these is the emerging SSBN force, an almost entirely new form of nuclear deployment in Chinese posturing. The report states that “the PLA has only a limited capacity to communicate with submarines at sea, and the PLA Navy has no experience in managing a SSBN fleet that performs strategic patrols with live nuclear warheads mated to missiles.”

Chinese SSBNs have never performed a strategic deterrent patrol (none were conducted in 2009), and if current Chinese doctrine is any indication it is doubtful that the SSBNs will deploy with “live nuclear warheads mated to missiles” in peacetime. But the absence of operational experience and the limited communication capability raises serious questions about how inadequate proficiency and launch control procedures might create problems in a crisis.

The report raises similar issues with the emergency of the new generation of land-based mobile missiles. Although China has operated medium-range mobile missiles for decades, the delegation of launch authority in a crisis to units with quicker-launch solid-fuel long-range missiles raises questions about use control, crisis stability, and misunderstandings.

DF-31A on Launch Pad

How will quicker-firing long-range missiles such as the DF-31A affect command and control and delegation of launch authority?

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And there “is little evidence,” the Pentagon concludes, “that China’s military and civilian leaders have fully thought through the global and systemic effects that would be associated with the employment of these strategic capabilities.”

Despite these issues and speculations in previous annual Pentagon reports and the public about possible changes to Chinese nuclear doctrine, particularly conditions to its no-first-use policy, the 2010 report concludes that, “there has been no indication that national leaders are willing to attach such nuances and caveats to China’s ‘no first use’ doctrine.”

See also: previous blogs about China

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

India-Pakistan nuclear competition on display again

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By Hans M. Kristensen

If Indian news reports (here, here, and here) are any indication, India has once again discovered that Pakistan might possess a few nuclear weapons more than India.

This time the reports are based on an article Robert Norris and I published in the Bulletin of the Atomic Scientists, in which we provide estimates for the number of nuclear weapons in the world.

In 2009, our report on Pakistan’s nuclear forces triggered a statement from the chief of the Indian army that if the warhead estimate in our report was correct then Pakistan had moved beyond what is needed for deterrence. The unintended acknowledgement: so had India.

In 2008, reports about the arrival of the first Chinese Jin-class SSBN at a naval base on Hainan Island were followed by suggestions that India needed to build perhaps five new Arihant-class ballistic missile submarines.

As far as I can gauge, apart from nuclear testing where India started first, Pakistan has always been a little ahead in warheads, fissile material, and delivery systems. But neither country can claim any nuclear moral high ground; both are increasing their nuclear arsenals, both are producing more fissile material for nuclear weapons, and both are diversifying the means to deliver nuclear weapons and extending their range.

The two countries are now at a warhead level about equal to that of Israel (~80 warheads). But whereas it took Israel 40 years to reach that level, India and Pakistan have done so in only 12 years. And they’re apparently not done.

Although neither government wants to say so publicly, India and Pakistan are in effect in a nuclear arms race. It might not be of the intensity of the Cold War arms race between the Soviet Union and the United States, but it is a race nonetheless for capability and systems. Pointing to the other side having more only underscores that dynamic.

Indian and Pakistani security will probably be served better by trying soon to define just how big a nuclear force is sufficient for minimum deterrence so that “prudent planning” doesn’t take them to a new and more dangerous level.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.

The men behind a decade and a half of U.S. strategic nuclear planning say the New START treaty will enhance American national security.

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By Hans M. Kristensen

Seven former commanders of U.S. nuclear strategic planning have endorsed the New START treaty and recommended early ratification by the U.S. Senate.

In a letter sent to Senator Carl Levin and John McCain of the Senate Armed Services Committee and Senators John Kerry and Richard Lugar of the Senate Foreign Relations Committee, the retired nuclear commanders conclude that the treaty “will enhance American national security in several important ways.”

The list includes four former commanders of U.S. Strategic Air Command (SAC) and four former commanders of U.S. Strategic Command (STRATCOM) – one served both as SAC and STRATCOM commander – who were responsible for U.S. strategic nuclear war planning and for executing the strategic war plan during the last phases of the Cold War and until as recently as 2004.

In doing so, the nuclear commanders – who certainly can’t be accused of being peaceniks – effectively pull the rug under the feet of the small number of conservative Senators who have held the treaty and U.S. nuclear policy hostage with a barrage of nitpicking and frivolous questions and claims about weakening U.S. national security interests.

The endorsement by the former nuclear commanders adds to the extensive list of current and former military and civilian leaders who have recommended ratification of the New START treaty. In fact, it is hard to find any credible leader who does not support ratification.

It’s time to end the show and do what’s right: ratify the New START treaty!

REPRODUCTION OF LETTER:

July 14, 2010

Senator Carl Levin, Chairman, Armed Services Committee
Senator John McCain, Ranking Member, Senate Armed Services Committee

Senator John F. Kerry, Chairman, Senate Foreign Relations Committee
Senator Richard G. Lugar, Ranking Member, Senate Foreign Relations Committee

Gentlemen:

As former commanders of Strategic Air Command and U.S. Strategic Command, we collectively spent many years providing oversight, direction and maintenance of U.S. strategic nuclear forces and advising presidents from Ronald Reagan to George W. Bush on strategic nuclear policy.  We are writing to express our support for ratification of the New START Treaty.  The treaty will enhance American national security in several important ways.

First, while it was not possible at this time to address the important issues of non-strategic weapons and total strategic nuclear stockpiles, the New START Treaty sustains limits on deployed Russian strategic nuclear weapons that will allow the United States to continue to reduce its own deployed strategic nuclear weapons.  Given the end of the Cold War, there is little concern today about the probability of a Russian nuclear attack.  But continuing the formal strategic arms reduction process will contribute to a more productive and safer relationship with Russia.

Second, the New START Treaty contains verification and transparency measures—such as data exchanges, periodic data updates, notifications, unique identifiers on strategic systems, some access to telemetry and on-site inspections—that will give us important insights into Russian strategic nuclear forces and how they operate those forces.  We will understand Russian strategic forces much better with the treaty than would be the case without it.  For example, the treaty permits on-site inspections that will allow us to observe and confirm the number of warheads on individual Russian missiles; we cannot do that with just national technical means of verification.  That kind of transparency will contribute to a more stable relationship between our two countries.  It will also give us greater predictability about Russian strategic forces, so that we can make better-informed decisions about how we shape and operate our own forces.

Third, although the New START Treaty will require U.S. reductions, we believe that the post-treaty force will represent a survivable, robust and effective deterrent, one fully capable of deterring attack on both the United States and America’s allies and partners.

The Department of Defense has said that it will, under the treaty, maintain 14 Trident ballistic missile submarines, each equipped to carry 20 Trident D-5 submarine-launched ballistic missiles (SLBMs).  As two of the 14 submarines are normally in long-term maintenance without missiles on board, the U.S. Navy will deploy 240 Trident SLBMs.

Under the treaty’s terms, the United States will also be able to deploy up to 420 Minuteman III intercontinental ballistic missiles (ICBMs) and up to 60 heavy bombers equipped for nuclear armaments.  That will continue to be a formidable force that will ensure deterrence and give the President, should it be necessary, a broad range of military options.

We understand that one major concern about the treaty is whether or not it will affect U.S. missile defense plans.  The treaty preamble notes the interrelationship between offense and defense; this is a simple and long-accepted reality.  The size of one side’s missile defenses can affect the strategic offensive forces of the other.  But the treaty provides no meaningful constraint on U.S. missile defense plans.  The prohibition on placing missile defense interceptors in ICBM or SLBM launchers does not constrain us from planned deployments.

The New START Treaty will contribute to a more stable U.S.-Russian relationship.  We strongly endorse its early ratification and entry into force.

Sincerely,

General Bennie Davis (USAF, Ret) [SAC CINC 1981-1985]

General Larry Welch (USAF, Ret) [SAC CINC 1985-1986]

General John Chain (USAF, Ret) [SAC CINC 1986-1991]

General Lee Butler (USAF, Ret) [SAC CINC 1991-1992, STRATCOM CINC 1992-1994]

Admiral Henry Chiles (USN, Ret) [STRATCOM CINC 1994-1996]

General Eugene Habiger (USAF, Ret) [STRATCOM CINC 1996-1998]

Admiral James Ellis (USN, Ret) [STRATCOM CINC 2002-2004]

The original letter is here.

This publication was made possible by a grant from Carnegie Corporation of New York and Ploughshares Fund. The statements made and views expressed are solely the responsibility of the author.