Posted By Stephen M. Walt Share

The big story this morning, of course, is the revelation that Iran has been building a second nuclear enrichment facility. Here's what I think it means, with the caveat that the story is about three hours old and I still have lots of unanswered questions.

To start, it is not good news for those who have been hoping for a gradual improvement in Iran's relations with the outside world, hopes that were already undermined by the repercussions of the fraudulent election this past summer. At a minimum, it is bound to create new doubts about Iranian assurances regarding its nuclear program, although I don't know anyone who took those assurances at face value. After all, the whole idea behind inspections and other safeguards, and the whole reason that Western intelligence agencies have continued to watch Iran closely, is because we don't necessarily believe what Iran's government tells us.

That said, it is not clear from the early press reports exactly how blatant a violation this really is. According to the Washington Post, Iran notified the IAEA on September 21 that it was constructing a new pilot enrichment plant. Assuming that it has not already introduced nuclear material into this facility (and Tehran says it hasn't), Iran is therefore in compliance with the NPT's Comprehensive Full Scope Safeguards Agreement, which requires it to notify the IAEA six months before nuclear material is introduced into any new facility. Iran previously withdrew from the more demanding Subsidiary Agreement 3.1, which would have required more detailed and timely notification, in response to the IAEA's decision to refer Iran's nuclear program to the U.N. Security Council. So from Tehran's perspective, this new facility is not a violation at all: they are permitted to enrich under the NPT and they have complied with the Comprehensive Safeguards agreement by notifying the IAEA of the new facility. (Even that rather generous interpretation might not let Tehran entirely off the hook, however, as it seems likely that they informed the IAEA on September 21 because they had discovered that the United States had penetrated the program and they wanted to pre-empt today's revelation.)

The United States has an obvious response: unilateral withdrawal from Agreement 3.1 is not permissible, and so technically Iran is still in violation of its past commitments, but this legalistic back-and-forth is part of a long pattern. In addition, the U.N. Security Council has passed several resolutions demanding that Iran cease all enrichment, and its refusal to comply provides the main legal basis for sanctions. Iran is hardly the first country to ignore Security Council resolutions, however, and Tehran undoubtedly believes that the construction of a second plant is not a direct violation of its more basic obligations under the NPT.

The bottom line is that we still don't yet know just how serious the new discovery is. If nuclear material is already present there (despite what Iran now says), then it is a clear violation of the agreements that Iran's government has repeatedly claimed it is upholding, and thus casts even more doubt on its credibility. If the facility is still under construction and no nuclear material has been introduced, then Iran is technically in compliance of the basic safeguards agreement, and trying to exploit various legal loopholes. (Again, it is defying the SC resolutions, but it was doing that already and so today's announcement adds nothing new).

The New York Times story also makes it clear that this discovery is not by itself evidence that Iran has an active nuclear weapons program. The new facility is an enrichment plant, not a bomb-building factory, and everyone knows that Iran was already producing low-grade enriched uranium.  Accordingly, the new revelation does not contradict earlier intelligence estimates which concluded that Iran was not actively trying to build a bomb.

Of course, this does not mean Iran is not interested in getting nuclear weapons, or at least achieving a "breakout" capability that it would allow it to go nuclear rapidly at some point in the future. As I've noted before, there are good reasons why Iran might want a nuclear deterrent of its own, just as there are good reasons why the United States and its allies would prefer that it didn't. In any case, this new report is bound to reinforce suspicions about Iran's long-term intentions and hardliners will undoubtedly use this information to press for tougher economic sanctions. This is of course, why the United States, Britain, and France released it, and if I had to guess, I'd bet that stricter sanctions will in fact be imposed.

That's another puzzle, by the way. The Times's story says the United States "has been tracking the project for years," which makes one wonder why its existence was not disclosed previously. Perhaps the United States was trying to protect "sources and methods," or lacked fully convincing information. In any case, the timing of the release seems to be clearly related to the current push for more stringent sanctions.

Most importantly, this new information does not strengthen the case for using military force against Iran's nuclear program, although hawks are bound to invoke it for that purpose. Airstrikes can delay Iran's acquisition of a nuclear weapon, but cannot prevent it, and they are likely to strengthen Iran's resolve to acquire a genuine deterrent as soon as they can. Attacking Iran will rally the population around the regime, and given Iran ample reason to retaliate against the United States or its allies in Iraq, or Afghanistan, or elsewhere in the Middle East.

If we want to stop an Iranian bomb (as opposed to halting its nuclear enrichment activities), we are going to have to convince Iran that it doesn't need a nuclear deterrent to be safe. That won't be easy to do, given that Iran has three nuclear neighbors (Pakistan, India, and Israel), and a very bad relationship with the United States, which has given millions of dollars to Iranian opposition groups and formally committed itself to regime change on several past occasions. Persuading Tehran that they don't need a deterrent requires taking the threat of force, regime change, and the like off the table, instead of ratcheting the threat level up. I'm not saying that this approach will work; I'm saying that threatening preventive war won't. And actually launching a preventive war is likely to make things much worse.

On this issue, Iran expert Gary Sick has the right idea: "first, do no harm."  Iran is committed to mastering the full fuel cycle, and probably wants to get a "breakout capability." Money quote:

The real purpose of negotiations, in my view, is to build a system of monitoring and inspections that will (1) provide maximum early warning of a potential future Iranian decision to "break out;" and (2) insure the maximum possible interval between that moment and the moment where Iran could actually have a bomb. Iran has said on several occasions that it is willing to accept such an enhanced inspection regime, but it will no doubt insist on a price. That, I think, is what the negotiations should be about."

Ironically, today's report may make this solution more feasible, by reminding the Iranian government that hiding a nuclear facility isn't easy -- especially when the outside world is suspicious -- and that any attempt to renege on a future agreements is likely to be detected. Maybe, just maybe, today's episode will make a deal easier to reach down the road.  Not that I'd bet on that.

Spencer Platt/Getty Images

 

SIR_MIXXALOT

5:00 PM ET

September 25, 2009

I think you are exactly

I think you are exactly right.

I would only add that for regional balance -- even though Israel is not a member of the NPT -- it would be good if they opened up their nuclear WEAPONS program for further scrutiny.

Iran is obviously trying to reach a nuclear weapons capability -- not necessarily make nuclear weapons.

A good way to encourage them to make nuclear weapons in the future would be to launch a military strike.

 

DAN KERVICK

5:23 PM ET

September 25, 2009

Who is Pre-empting Whom?

(Even that rather generous interpretation might not let Tehran entirely off the hook, however, as it seems likely that they informed the IAEA on September 21 because they had discovered that the United States had penetrated the program and they wanted to pre-empt today's revelation.)

Perhaps the US did the pre-empting? Since Iran reported the facility to the IAEA on the 21st, I assume that it's existence was going to come out in the press anyway. When that happened, the take-away might have been that Iran was engaging in good international behavior by complying with IAEA reporting requirements, and doing so on its own initiative. It also would have left egg on the face of Western intelligence, since the world would have learned of this facility directly from Iran, without any heads-up from the West. Washington would have responded, no doubt, that they knew about the facility all along. But who would believe them after the fact?

And if people did believe Washington, they would then have blamed them for covering up a security threat for political reasons. People would then say, "When exactly were you planning to tell the rest of us about this new facility?"

So it looks like Obama, Brown and Sarkozy decided to pre-empt a potentially very embarrassing situation by jumping in front of a camera to present the story that they had "caught" the Iranians first.

Where was the media on this? Who covers the IAEA beat? If the IAEA learned of this facility on the 21st, why hasn't that already been reported? Is the IAEA airtight?

And if this new facility poses any sort of threat, and Western governments knew of its existence long ago, then why didn't these governments report what they knew to the IAEA, so that the IAEA could make inquiries with Iran and investigate? Surely they could have given enough information to get the investigative ball rolling, without revealing sources and methods. Is this a case of hindering the ability of the IAEA to do its work, for the sake of negotiation games?

 

BLUE13326

6:18 PM ET

September 25, 2009

Another point to add is this

Another point to add is this new site is near the holy city of Qum, so any bombing of the site that either produced collateral damage or fallout would certainly have an even greater impact in terms of inflaming the Islamic world.

 

HASS

4:55 PM ET

October 8, 2009

Not really

Qom is a center for Shi'ite theology -- which constitute only 10% of the world's muslim population

 

DAVE123

7:11 PM ET

September 25, 2009

If we want to stop an Iranian

Here is the most important point, one that Professor Walt conveniently leaves out; From the LA Times Story:

"Reporting from Washington - U.S. intelligence officials said today that they have known about a newly disclosed Iranian nuclear facility for several years -- possibly as early as 2006 -- and that its dimensions and design all but rule out any civilian nuclear purpose."

Walt:

If we want to stop an Iranian bomb (as opposed to halting its nuclear enrichment activities), we are going to have to convince Iran that it doesn't need a nuclear deterrent to be safe...Persuading Tehran that they don't need a deterrent requires taking the threat of force, regime change, and the like off the table, instead of ratcheting the threat level up. I'm not saying that this approach will work; I'm saying that threatening preventive war won't. And actually launching a preventive war is likely to make things much worse.

I still don't see what possible argument or guarantees Iran would ever accept from us that would stop them from creating a nuclear bomb. Either we do nothing, we try to persuade them through sanctions, or we bomb them. Those are the only three options that exist in the real world. Pick your favorite, but don't try to tell us that promising really earnestly to take "the threat of force, regime change, and the like off the table" will appease them. Only an idiot would be persuaded by something like that.

What Walt can't quite bring himself to say is that he believes the only possible outcome is to let Iran get the bomb and hope deterance works. He just doesn't seem to have the intellectual honesty to say it explicitly.

Then we have gems like

If nuclear material is already present there (despite what Iran now says), then it is a clear violation of the agreements that Iran's government has repeatedly claimed it is upholding, and thus casts even more doubt on its credibility.

Great, but "credibility" is irrelevent to the Walt plan. Iran needs no creidibility because Walt doesn't think we should do anything to stop them from having a bomb.

Along the same lines, Walt says this is the "money quote"

The real purpose of negotiations, in my view, is to build a system of monitoring and inspections that will (1) provide maximum early warning of a potential future Iranian decision to "break out;" and (2) insure the maximum possible interval between that moment and the moment where Iran could actually have a bomb..

Why is this the money quote? If Walt doesn't believe in sanctions (see his previous blog posts) and doesn't believe in any use of force ever, what would Walt want us to do if we found out Iran was about to build a warhead?

Nothing

 

SEANMCBRIDE

7:17 PM ET

September 25, 2009

Gaming out the options

If you game out all the options, the best option, from the American standpoint, is that we will have to rely on deterrence to deal with the nuclear capability that Iran will probably acquire. Sanctions won't work, nor will conventional military force. And the use of conventional military force would probably create a geopolitical disaster.

 

HASS

4:56 PM ET

October 8, 2009

How about taking up Iran's offer

How about accepting Iran's offer to participate in running their nuclear program, thus making it impossible for them to secretly use it to make nukes?

 

SIR_MIXXALOT

7:21 PM ET

September 25, 2009

Yes

Yeah, big boy, just like we did NOTHING when Israel introduced nuclear weapons into the middle east becoming the middle east's first, and biggest proliferation of nuclear weapons.

If Iran eventually obtains nuclear weapons, they will be for peaceful deterrent use against the already existing Israeli nukes.

Why should I as an American care if Iran properly threatens the hegemony of Israel in the middle east? -- yes hegemony: committing war crimes and bombing countries at will (Syria, Lebanon, Gaza, Iraq...)

A challenge to war-criminal Israeli hegemony in the middle east would be welcome by me.

 

COURTNEYME109

7:54 PM ET

September 25, 2009

Risible

Well, Little Satan also has a penchant for transparent, periodic elections, a free, uncensored press, a military under civilian control, a nat'l treasury under public scrutiny, an independent judiciary under elected gov oversight, a modern military conscripted from the highest literacy rate in the entire Middle East and a tolerant, egalitarian society.

Unlike Iran.

Traditionally - free nations with nuclear weaponry cause little instability, threats or problems.

 

SEANMCBRIDE

12:34 AM ET

September 26, 2009

Israel and Christian Armageddonists

courtneyme109: Israel's most passionate supporters in the U.S. are Christian Armageddonists who are agitating for the End of the World as soon as possible. John Hagee is treated as a guest of honor at AIPAC. George W. Bush went to war against Iraq under the belief that he was in the middle of Armageddon, in the literal biblical sense. Erik Prince of Blackwater believed he was on a holy mission to eradicate Islam from the world. The Israeli government is easily pushed around by religious fundamentalist setters who believe they are building biblical Eretz Yisrael (Greater Israel) in expectation of the coming of Moshiach, a world-dominating military leader. Israel, which is in possession of hundreds of nuclear weapons, periodically threatens to exerise the Samson Option (taking down the entire world with it). Truly a rational enterprise all around, with little chance of provoking instability anywhere.

 

COURTNEYME109

1:00 AM ET

September 26, 2009

Incorrect

Nothing magical about Little Satan per se - any more than Taiwan, SoKo, Nippon or Georgia. Sister democracies in dangerous hoods traditionally enjoy support from Great Satan.

Little Satan's Alamo Masada mindset re: Sampsonian options are quite understandable. Nearly 300 million Arabs surround her and appear intolerant and laughably unhinged. Stability? Absolute! When was the last time Arab League dared to surprise attack a democratic member of the UN?

Realpolitik/Realism fans should love Little Satan's nuclear ambiguity. Sans non state rowdy rocket rich rejectionists, Little Satan's mystery might ensures the corrupt ammoral cult of stability is intact.

Even worse - Arab League loses every war they fight, provide nearly zero services for their people and are only really good at deploying secret police, secret prisons, secret trials and secret executions while maintaining embarrassing literacy rates with tribalistic gender apartheid, honor killings and no elected leaders.

Please forgive younger Americans as we look at the Arab League and laugh.

Baby Jesus, M'Hammed or Moses doesn't really have anything to do with fans of fun and free choice supporting kindred spirits - there is a far easier case to make for being allied with Little Satan on the secular front without dragging religion in to it.

 

SIR_MIXXALOT

1:03 AM ET

September 26, 2009

Iranian nukes to counter

Iranian nukes to counter war-criminal Israeli nuclear hegemony in the middle east would be welcome by me.

 

HASS

4:57 PM ET

October 8, 2009

The fake democracy of Israel

"Transparent periodic elections" in which 2 million people are not allowed to participate because they're Palestinians and are forced to live in massive open-air prisons and subjected to various cruelties and ethnic cleansing. Yeah.

 

KERPIN

9:22 PM ET

September 25, 2009

Newsflash: the US has interests in the Middle East

that have nothing to do with Israel. The opposition to a nuclear Iran isn't just an Israeli issue.

 

SIR_MIXXALOT

11:20 PM ET

September 25, 2009

There is no evidence of ANY

There is no evidence of ANY Iranian nuclear weapons program -- whereas Israel has 200 or so nukes.

 

COURTNEYME109

1:08 AM ET

September 26, 2009

Except for The NIE 2007

It was quite sexplicit about Persia's hot desires for nuked up WMD

 

SIR_MIXXALOT

5:19 PM ET

September 26, 2009

Bone-up

You should consider boning up on the NIE too. It said there was no evidence of an on-going Iranian nuclear weapons program.

 

COURTNEYME109

3:28 PM ET

September 27, 2009

Wrong Again Sir Mixx

NIE 2007 was chock full of gossip about Mullahopolis' quest for nuclear chicanery of the weaponized type. Even credited knocking out Iraq in 20 days as being the casus belli for Tehran to freak and stop fiddling about with it.

Curious about your attempts to rewrite events historical and au courant yet certainly admire your persistence in maintaining a debate you are not winning.

 

SIR_MIXXALOT

10:11 PM ET

September 27, 2009

gossip. yes. like the iraqi

gossip. yes. like the iraqi aluminum tubes and the yellocake from Niger. Right.

The 2007 NIE said there was NO EVIDENCE of an ONGOING Iranian nuclear WEAPONS program.

Q.E.D.

 

KERPIN

2:14 PM ET

September 28, 2009

Bozo, that's not what the NIE said

All it said was that the warhead development component of the program was on hold. The other components - enrichment and missile development - are moving ahead.

 

SIR_MIXXALOT

4:44 PM ET

September 28, 2009

No it did not say on hold.

No it did not say on hold.

The enrichment and missile development have nothing to do with nuclear WEAPONS. Get it dumbass?

ENrichment is to LEU levels not HEU, OK? Get it?

Missiles can carry conventional warheads or be used to launch satellites.

There is NO EVIDENCE OF ANY ONGOING NUCLEAR WEAPONS PROGRAM in THE middle east, EXCEPT ISrael.

Dumbass

 

BURNINGCHROME

8:34 AM ET

September 26, 2009

revelation? really?

Mr. Walt writes "...the REVELATION that Iran has been building a second nuclear enrichment facility"

For someone such as Mr. Walt who postures themselves as an expert on the region and routinely offers up 'expert analysis' and prescriptions the only REVELATION should be a self realization that you have little understanding of the region and approach it with far more humility.

 

GERONIMO

5:42 PM ET

September 26, 2009

What is Iran up to?

Dave 123 has it mostly right in writing that Professor Walt's recommendation on what to do about Iran's intention to build nukes is to do "NOTHING". Other blioggers also foresee such a U.S. policy. They shrug and console themselves by betting on "deterrence" as the way to treat the problem.
But there's a problem within that probelm. It is that the terms aof deterrence will have to be defined. We will have to say what we will do under what circumstance. And that, fellow bloggers, mightz prove to contain political dynamite of nuclear proportion. So maybe doing NOTHING is the most facile way to go. After all, we mnust have learned by now that facing up to a totally voluntarist dictator just simply oughtn't to politicall correct. It's jus tuttut.

 

LEEN

6:48 PM ET

September 26, 2009

Stephen there are several

Stephen there are several articles over at Huff Po that reported that Iran had not gotten wind that Obama was going to spill the beans but that Obama came out with this announcement after they were told that Iran had sent the IAEA their announcement that they had been building this facility. That Obama and team were trying to say that the Iranian government had not been abiding by rules.

Now Huff Po has an article up saying Iran has said yes no problems to the inspections

 

GENE44

1:03 PM ET

September 27, 2009

Iran and facilities

The intelligence committees in at least 5 countries knew that Iran was building four different locations for developing nuclear bombs. They actually bought the plans from A.O. Kahn from Pakistan on how to build the bombs, but, failed to purchase material from the former Soviet Union. Then they worked with the North Koreans to develop how to attach the bomb to the missiles and to increase the range of their missiles.

This should have been published in the 2007 NIE report but the Democrats in charge of the publication did not want G.W. Bush to weigh in on Iran. Thus we had Democrats hoping that Iran would work with the EU members and take the candy being offered to stop. Seems Iran has their own agenda.

Hitting Qom one of the holy places for the Shi'ites would plut the Iranian people against Israel although the people have been in the dark about these facilities also.

One can expect Israel to attack when Iran does not come clean on the other facilities. Then we will have Hizbullah and Hamas raining missiles down on Israel as Iran will tell their Al Quds commanders to turn everything loose on Israel.
This means the destruction of Lebanon and Gaza in big time pictures and if Syria is stupid enough to join in they will live to regret it. The entire world will howl at Israel, but, when one is faced with extinction one does fight back and fight back hard.

The most interesting question to me is what stand Obama will take.

 

NKULWIN9

4:11 PM ET

September 27, 2009

Why Nuclear Reactors Justify Concern

Professor Walt, I'm sixteen years old, and I've already begun to analyze the logical fallacy within your argument, barely a few paragraphs in. You cite the New York Times article in a manner that suggests that just because Iran has nuclear "reactors," that doesn't necessitate they have nuclear "weapons," or the capability to develop them! Call me a cynic, but allowing a country that makes little exaggerated threats to wipe another sovereign state "off the map" to have any nuclear capabilities, energy or otherwise, is a poor choice. Your argumentative flaw was that you essentially created a false logic by omission. By only demonstrating one side of the argument, and pleading with naiveness that the other one did not matter (by not including it), you created a new premise on which you could challenge the base assumption, which is that a nuclear Iran, is a dangerous Iran. And in addition, a former teacher of mine told me once that "In the Persian Gulf more than any other place on Earth, where there's a will, there's a way."

 

GERONIMO

7:49 PM ET

September 27, 2009

Iran

Gene44 on Sun writes:
>...Hitting Qom one of the holy places for the Shi'ites >would plut the Iranian people against Israel although the >people have been in the dark about these facilities also....
Quite. But nothing so numinous is needed. The Israelis
could simply claim to be employing a drastic sanction when preventing Iran from exporting its oil. That would not be all that hard to do: bomb the Kharg Island and Abadam oil terminals, plus a small handful of strategic pumping stations of the Iranian pipeline network. To be sure, in time the damage would be repaired (probably, as usual, with the help of Texans) which might remind Ahmedinajad that he could once again have to repair a bombing if he didn't shape up. It might also sweeten the
ayatollahs toward the people who helped Iran out of s situation that confronted them with total economic collapse.
There's no assuming that sanctions need be enforced by peacefukl diplomacy exclusively: and there's no need to cite Clausewitz when asserting that diplomacy may have a violent, but repairable, extension.

 

SIR_MIXXALOT

1:29 AM ET

September 28, 2009

Better Idea

How about we bomb the war criminal Apartheid Israeli nation that is not a member of the NPT, has nuclear weapons, and the first and largest nuclear proliferator in the middle east?

 

KEROL LUNDY

2:29 AM ET

September 28, 2009

Iran nuclear "crisis".

I just want to remind everybody that the Persian invented the chess game; therefore any newcomer cannot outsmart them in that field. They are very clever at the diplomatic gamesmanship and the law is on their side. Having said that, Iran behavior is conformity to the post September 11 world. Before accusing Iran of any wrong doing, it is important to put into perspective the US bellicose behavior while the neocons were in power. The new paradigm might is right was the modus operandi. North Korea was under the threat of airstrike while the IAEA had inspectors on the ground and all the facilities under the safeguard agreement, the US put pressure on them relentlessly and they were cornered. They left the agency in conformity with the law and acquired the ultimate weapon. Now the West wants to negotiate with them so to prevent the spread of the weapon. No one now is talking about military action against NK; the Iranians were taking note and realized that acquiring this weapon is a security guaranty that any treaty would confer. Having said that again, I am not insinuating that they are building one. They would be foolish not to do so to guarantee their survival.
The mainstream media never mention that Iran is in full compliance with the NPT why? I read articles and books that Professor Walt authored, I am a bit disappointed to see that the professor is repeating the line of the mainstream media when he writes.” the REVELATION that Iran has been building a second nuclear enrichment facility". Had the western intelligence agencies had unshackle evidence that the Iranians were doing something remotely wrong in this site, it would have made it to the mainstream media before M. Amhadinedjad came to the UN. As we speak no intelligence agencies know with certainty that Iran possess the bomb. The Iranians notified the IAEA of the new enrichment site in Qom within the prescribe deadline (180 days before introducing any nuclear material in the facility) the West want to create a hype before the schedule round of negotiation of October 1st and said they discover a new site. All I can say at this point is “this round of negotiation is doom to failed “chronique d’une mort annoncee”.

 

KASSANDRA

5:17 PM ET

September 29, 2009

UN Sec Council Res 487

Once upon a time there was UN Security Council Resolution No. 487, on the Nonproliferation of Nuclear Weapons, dating from June 19, 1981, that called upon Israel to place its nuclear facility under the International Atomic Energy Agency's surveylance. Here we have a rouge nation, Isral, threatening a law-abiding one, Iran.

 

Stephen M. Walt is the Robert and Renée Belfer professor of international relations at Harvard University.

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