Pretty in Pink: The Parchin Preoccupation Paradox
By Professor Yousaf Butt | Arms Control Law | January 22, 2013
The Stockholm International Peace Research Institute (SIPRI) has just released an important new expert report on Iran’s nuclear program, specifically on the Parchin site of much recent interest to the IAEA. The report is a must-read for a number of reasons, not the least of which is the expertise of the author, Robert Kelley. Kelley is a nuclear engineer and a veteran of over 35 years in the US Department of Energy’s nuclear weapons complex, most recently at Los Alamos. He managed the centrifuge and plutonium metallurgy programs at Lawrence Livermore National Laboratory, and was seconded by the US DOE to the IAEA where he served twice as Director of the nuclear inspections in Iraq, in 1992 and 2001.
Rarely, if ever, has such a technically qualified person spoken publicly on this important topic.
The SIPRI report dramatically revises the standard narrative in the mainstream western press about what is known about the Parchin site, and what – if anything — needs to be done about it. It also perfectly contextualizes the relative (un)importance of the IAEA gaining access to the site, and what the IAEA — and P5+1 countries — stands to gain or lose in the process of making a mountain out of a molehill on this issue. As Kelley states, “a careful review of the evidence available to date suggests that less has been going on at the site of interest than meets the eye.”
The dispute centers on “the IAEA’s request to visit a large military production complex located at Parchin, near Tehran. The request is part of the agency’s efforts to resolve questions about whether alleged Iranian nuclear activities have what IAEA Director General Yukiya Amano has called ‘possible military dimensions’.” Note the “possible” there. Specifically, the IAEA says it has secret information (which it will not share, even with Iran) from a member state’s intelligence agency indicating that Iran may have constructed a large steel chamber in one of the buildings for conducting conventional high explosives experiments—some of which may have involved natural (not enriched) uranium—which could be associated with a secret program to do research on nuclear bombs. As Kelley explains in the SIPRI report the whole scenario is a bit of a stretch from a technical standpoint.
“A chamber such as the one claimed to be in the building is neither necessary nor particularly useful for developing a first-generation nuclear weapon. Such development tests have normally been done outdoors for decades.”
And:
“There are a range of experiments involving explosives and uranium that a country presumably would conduct as part of a nuclear weapon development programme. Most of these are better done in the open or in a tunnel. They include basic research on neutron initiators using very small amounts of explosive and grams of uranium and on the very precise timing of a neutron initiator using a full-scale conventional explosion system and many kilograms of uranium. The alleged chamber at Parchin is too large for the initiator tests and too small for a full-scale explosion. If it exists at all, it is a white elephant.”
And if someone is going to build a chamber like the one alleged in the secret evidence passed to the IAEA, they will want to do experiments and make measurements. They will want to measure things with, for example:
· very high speed optical cameras
· flash X-ray systems (like an X-ray strobe light which gives you one x-ray of implosion in a very short time)
· neutron detectors
· Various electric timing and pressure detectors.
The collar that is shown in the alleged graphic of the chamber gets in the way of the optical, X-ray and neutron measurements. So it would be better not to have it there at all. The collar of the alleged chamber also means that when the chamber is used up to its design capacity it could well fail on the ends, the entrance door or the windows and cable ports for the measurements.
But before highlighting more of the take-aways from the SIPRI report, let me first briefly mention what other former senior IAEA officials have said about how the IAEA is handling the Parchin issue more broadly.
Firstly, let’s recall that the IAEA has already visited Parchin twice in 2005 and found nothing – although they did not go to the specific area they are now interested in. However, the IAEA could have gone to that area even in 2005 – they simply chose to go to other sites on the military base. As the IAEA report at the time summarized:
“The Agency was given free access to those buildings and their surroundings and was allowed to take environmental samples, the results of which did not indicate the presence of nuclear material, nor did the Agency see any relevant dual use equipment or materials in the locations visited.”
When the IAEA last went to Parchin, Olli Heinonen was head of IAEA safeguards and led the inspections – the methodology for choosing which buildings to inspect is described in an excellent Christian Science Monitor article which is worth reading in its entirety, but I quote the relevant bits:
“At the time, it[Parchin] was divided into four geographical sectors by the Iranians. Using satellite and other data, inspectors were allowed by the Iranians to choose any sector, and then to visit any building inside that sector. Those 2005 inspections included more than five buildings each, and soil and environmental sampling. They yielded nothing suspicious, but did not include the building now of interest to the IAEA.
“The selection [of target buildings] did not take place in advance, it took place just when we arrived, so all of Parchin was available,” recalls Heinonen, who led those past inspections. “When we drove there and arrived, we told them which building.”
Would the Iranians really have risked exposing some nefarious nuclear weapons-related work at Parchin by making all of Parchin available to the IAEA in 2005?
In the same article Heinonen also explains why the current IAEA approach is deeply, logically flawed:
“Also unusual is how open and specific the IAEA has been about what exactly it wants to see, which could yield doubts about the credibility of any eventual inspection.
“I’m puzzled that the IAEA wants to in this case specify the building in advance, because you end up with this awkward situation,” says Olli Heinonen, the IAEA’s head of safeguards until mid-2010.
“First of all, if it gets delayed it can be sanitized. And it’s not very good for Iran. Let’s assume [inspectors] finally get there and they find nothing. People will say, ‘Oh, it’s because Iran has sanitized it,’” says Mr. Heinonen, who is now at Harvard University in Cambridge, Mass. “But in reality it may have not been sanitized. Iran is also a loser in that case. I don’t know why [the IAEA] approach it this way, which was not a standard practice…”
As for the typically tendentious reporting on this topic, which almost always casts Iran in a negative light, the words of Hans Blix, former head of the IAEA, bear repeating:
“Hans Blix, former chief of the IAEA and later of UN weapons inspectors in Iraq, has also expressed surprise at the focus on Parchin, as a military base that inspectors had been to before.
“Any country, I think, would be rather reluctant to let international inspectors to go anywhere in a military site,” Mr. Blix told Al Jazeera English… “In a way, the Iranians have been more open than most other countries would be.”
One of the reasons that Mr. Blix says that is because normally the IAEA does not have the legal authority to inspect undeclared non-nuclear-materials related facilities, in a nation – like Iran — that has not ratified the Additional Protocol. The IAEA can call for “special inspections” but they have not done so. They can also choose arbitration, as specified in the Comprehensive Safeguards Agreement, but again they have not done that.
In fact, the Comprehensive Safeguards Agreement between Iran and the IAEA states quite clearly that its “exclusive purpose” is to verify that nuclear material “is not diverted to nuclear weapons or other nuclear explosive devices.” Nothing else – that is it exclusive purpose. It does not cover conventional explosives testing, as suspected at Parchin (according to secret information given by a third-part intelligence agency). The IAEA itself has admitted that “absent some nexus to nuclear material the Agency’s legal authority to pursue the verification of possible nuclear weapons related activity is limited.”
Regarding the secret information from an unidentified intelligence agency, it is useful to keep in mind that in the past, forgeries have been passed along to the IAEA. (And, if recent leaks that the IAEA is using mathematically flawed graphs in its case against Iran are to be believed, the IAEA’s case is further weakened.)
So as Hans Blix stated, Iran has been more cooperative than other countries would be in the same situation, and indeed more cooperative than it legally needs to be. It has shown great goodwill by allowing the IAEA a visit to Parchin in 2005. And let’s not forget that in 2004, Brazilian authorities refused to give IAEA inspectors full access to the Resende uranium enrichment facility with nary a peep out of the “world community”.
But coming back to the SIPRI report, a couple more of the highlights:
“The IAEA says that Iran did very complex experiments involving explosives and many fibre-optic detectors and possibly uranium. However, the IAEA says these experiments were not done at Parchin but rather 500 km away at Marivan. In any case, the experiments at Marivan described in great detail by the IAEA would not use uranium.”
And has Iran demolished the building at Parchin that the IAEA wants to visit as some “experts” have claimed?
“No. Some reports implied that Iran had destroyed the building, but this is incorrect. The IAEA claims that five buildings on this site have been demolished but this cannot be seen in satellite imagery. Iran did demolish a small outbuilding on the same site that appears to have been a garage. It was probably demolished to make way for a new road that is being built at the Parchin complex. Another small structure, probably a garage or material store was reported destroyed but is still in place in the latest satellite imagery…The building of interest for the IAEA remains standing.”
Regarding reports (e.g. from the ISIS group ) that Iran may be sanitizing the site, perhaps to prevent the IAEA from detecting uranium contamination, Kelley states:
“Iran has engaged in large-scale bulldozing operations on about 25 hectares near the Parchin building. This includes the bulldozing of old dirt piles to level a field 500 metres north of the building of interest. However, there has been no such activity in the area west of the building, except for removing some parking pads within about 10 m of it. The fact that the building’s immediate vicinity has been largely untouched on the west side strongly suggests that the purpose of the earth-moving operations was for construction and renovation work and not for ‘sanitizing’ the site by covering up contamination.”
What about the pink tarps mentioned by ISIS, supposedly to prevent satellites from viewing the inside of the buildings ?
“In the summer of 2012 Iran began major renovations at the site. Workers decreased perimeter security by tearing down fences, demolished one outbuilding and began renovation of two buildings. They covered both buildings with pink styrofoam insulation…One building is completely covered with insulation and the other is about 60 per cent covered. Raw materials can be seen on the ground nearby. The buildings were then reroofed and are at different stages of renovation even today.”
A picture of the pink insulation is shown in the report.
Kelley concludes, “The impasse over the Parchin visit has taken on a symbolic importance that is distracting attention from the IAEA’s efforts to address a range of questions about the scope and nature of Iran’s nuclear programme… The IAEA is stretching its mandate to the limit in asking for access to a military site based on tenuous evidence.”
And, of course, let’s keep in mind that these allegations, suspicions and “concerns” (as opposed to actual legal issues) that the IAEA has about Parchin date from about a decade or more ago – if they are true at all. And that they relate to conventional explosives testing.
As for any current worries about nuclear weapons work in Iran, James Clapper, the director of national intelligence, has confirmed that he has “a high level of confidence” that no such work is going on now. Defense Secretary Leon Panetta has also weighed in: “Are they [Iranians] trying to develop a nuclear weapon? No.” And Mohamed ElBaradei, the Nobel Peace Prize laureate who spent more than a decade as the director of the IAEA, said that he had not “seen a shred of evidence” that Iran was pursuing the bomb. Adding, “I don’t believe Iran is a clear and present danger. All I see is the hype about the threat posed by Iran.”
There are a number of other problems in the IAEA reports on Iran: For example, the agency keeps saying in its reports that it cannot “provide credible assurance about the absence of undeclared nuclear material and activities in Iran” nor that “all nuclear material in Iran is in peaceful activities.” But the agency cannot be expected to do this – that is not its job. Pierre Goldschmidt, the former deputy director of Safeguards at the IAEA summed it up well: “The Department of Safeguards doesn’t have the legal authority it needs to fulfill its mandate and to provide the assurances the international community is expecting.”
In fact, not only is it legally problematic to fulfill such a verification, it is a logical impossibility: The agency cannot prove the absence of something. There can always be somewhere in Iran where the IAEA has not looked. In fact, no one can reasonably task the IAEA to prove a negative in any country, whether it be in Brazil, Argentina, or the 49 other nations for which it is still evaluating the absence of undeclared nuclear activity.
The only real concern with Iran at the moment is that it is stockpiling 20% enriched uranium and that it could — if it decided to weaponize in the future — further enrich it to weapons grade. This is a worry about a future potential, not something that is happening now. Brazil and Argentina could do similar things. Japan could leave the NPT and breakout also. This breakout potential is a well known and inherent flaw (or a “feature”, depending on one’s perspective) of the NPT. If the P5+1 countries (all nuclear-armed, aside from Germany) would like to close this loophole, they should consider a bold new “NPT 2.0” Treaty, such as the one I outlined in an article for Foreign Policy.
Despite the generally alarmist reporting on Iran, it is not at all an eminent threat. For 30 years it has been claimed that Iran is just about to weaponize, when in fact none of those claims have ever panned out. For example, in 1984, Jane’s Defence Weekly quoted West German intelligence sources as saying that Iran’s bomb production “is entering its final stages”. In 1992, Bibi Netanyahu said Iran is 3-5 years from a bomb. He is just as wrong now, as he was then.
What about the claims that Iran’s allegedly covert enrichment plant at Fordow indicates a sinister weaponization intent? Not necessarily — Iran’s perspective on its national security environment is likely different than the view in Washington or Jerusalem. The Iranians may see this location as a defensive measure to protect its legitimate nuclear program. They have surely heeded the lesson from Israel’s bombing of Iraq’s civilian Osirak reactor in 1981: There is no guarantee of safety when it comes to nuclear facilities in the Middle East, not even civilian ones. It’s a rough neighborhood. What is viewed with suspicion in the West may simply be seen as a defensive no-brainer in Tehran.
And, of course, Iran’s nuclear enrichment program was not covert by initial design. Iran’s nuclear program was kicked off in the 1950s with the full encouragement and support of the United States, under the auspices of president Dwight D. Eisenhower’s Atoms for Peace program. In 1983, after the Islamic revolution, Iran went – in an overt way – to the IAEA to get help in setting up a pilot uranium enrichment facility. And the IAEA was then very receptive to the idea. According to an authoritative Nuclear Fuel article by the renowned Mark Hibbs, “IAEA officials were keen to assist Iran in reactivating a research program to learn how to process U3O8 into UO2 pellets and then set up a pilot plant to produce UF6, according to IAEA documents obtained by Nuclear Fuel.” But, according to Hibbs, “when in 1983 the recommendations of an IAEA mission to Iran were passed on to the IAEA’s technical cooperation program, the U.S. government then ‘directly intervened’ to discourage the IAEA from assisting Iran in production of UO2 and UF6. ‘We stopped that in its tracks,’ said a former U.S. official.”
So, yes, when Iran’s overt attempt was stymied politically, they obtained more covert means to set-up their enrichment facility. Enrichment facilities by their nature can be dual-use, of course, but they are certainly not disallowed under the NPT. And Iran’s allegedly “covert” or “sneaky” behavior may be largely a response to past politicization at the IAEA, and a lesson-learned from Israel’s bombing of Iraq’s civilian nuclear facility at Osirak in 1981. Unfortunately, the politicization has evidently only gotten worse since the 1980s. As representatives of the Non-Aligned Movement (NAM) at an IAEA board of governors meeting in 2010 already noted: “NAM notes with concern, the possible implications of the continued departure from standard verification language in the summary of the report of the director general [Yukio Amano].” (NAM represents over 100 nations, a clear majority of the world community).
Regarding how intrusive IAEA inspectors are supposed to be, the model safeguards agreement (INFCIRC-153), is quite clear:
“The Agency shall require only the minimum amount of information and data consistent with carrying out its responsibilities under the Agreement. Information pertaining to facilities shall be the minimum necessary for safeguarding nuclear material subject to safeguards under the Agreement.”
This completely validates Mr. Hans Blix statement that Iran has already exceeded the typical level of cooperation required of it by letting the IAEA visit Parchin twice: “Any country, I think, would be rather reluctant to let international inspectors to go anywhere in a military site…in a way, the Iranians have been more open than most other countries would be.”
So, back to current events: Iran is known to be converting part of its 20% enriched UF6 gas to metallic form making a “breakout” that much harder. And Tehran has signaled that it is willing to suspend 20% uranium enrichment if some sanctions are removed: so if the P5+1 countries are serious about their concern about a — completely legal — possible future potential Iranian breakout capability using its 20% enriched uranium stockpile, and they would like Iran to foreclose that option then they should take Iran up on its offer to suspend 20% enrichment by lifting some sanctions. What is definitely not constructive is making a mountain out of the Parchin molehill – a molehill that the IAEA has visited twice before and found exactly nothing at.
~
Professor Yousaf Butt is a nuclear physicist, and is currently professor and scientist-in-residence at the James Martin Center for Nonproliferation Studies at the Monterey Institute of International Studies. The views expressed here are his own, and do not reflect institutional views of CNS or MIIS.Yousaf has a piece just out in Foreign Policy today on how the Parchin obsession may be obstructing progress on the larger Iran issue.
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Israel angered over IAEA vote on nuclear arsenal
Press TV – August 29, 2012
Israel has become infuriated by a fresh initiative of Arab member states of the International Atomic Energy Agency (IAEA) which seeks to launch a global campaign to slam Israel’s possession of nuclear stockpile.
The motion tabled by 17 Arab IAEA members has been submitted to a preparatory commission to be put to vote at the Agency’s September meeting which is to be attended by 154 countries, the Associated Press reported on Tuesday.
The initiative is widely expected to be ratified, as it enjoys the support of Muslim countries as well as other states critical of Israel’s stance on Palestine, the report said.
Israel’s Ambassador to the IAEA Ehud Azoulay, has censured the initiative, saying the Arab nations have no moral right to point fingers.
Tel Aviv has also repeated its allegations against Iran’s nuclear energy program and claimed that the new motion seeks to distract attention from Iran’s nuclear case at the IAEA.
US President Barack Obama Administration had initially supported the plan but later condemned the initiative Under Israel’s duress, which is the sole possessor of nuclear weapons in the Middle East.
Defending the Arab initiative, Jordan’s Ambassador to IAEA Makram Queisi argued that Israel has been exposing the Middle East “to nuclear risks and threatening peace” by continuing its secretive military nuclear program.
He lashed out at Tel Aviv for thwarting “all initiatives to free the region of the Middle East of weapons of mass destruction, and in particular of nuclear weapons.”
Since Israel began building its Dimona plutonium- and uranium-processing facility in the Negev Desert in 1958, it is believed to have secretly manufactured hundreds of nuclear warheads, becoming the Middle East’s sole possessor of nuclear weapons.
Enjoying Washington’s support, however, Tel Aviv has steadily refused to either declare the nuclear arsenal or join the nuclear Non-Proliferation Treaty (NPT).
This is while the US, Israel, and some of their allies accuse Tehran of pursuing military objectives in its nuclear energy program and have used the false accusation as pretext to impose international and unilateral sanctions against Iran and to call for military attack on the country.
Iran argues that as a signatory to the NPT and a member of the IAEA, it has the right to acquire and develop nuclear technology for peaceful purposes, while promising a crushing response to any possible attack on its nuclear facilities.
The IAEA and Parchin: do the claims add up?
By Robert Kelley | SIPRI | May 23, 2012
The International Atomic Energy Agency (IAEA) has an extremely difficult time in evaluating alleged nuclear weapons studies in Iran. While it has done an excellent job in verifying the nuclear material production activities in Iran’s uranium enrichment plants, the IAEA also appears to be willing to risk its technical credibility by insisting on visiting a military site called Parchin, near Tehran. The IAEA renewed its call to be granted access to Parchin during the past week’s negotiations with Iran on a new framework agreement for resuming its investigation of suspected military nuclear activities in the country. For its part, Iran has dismissed the IAEA’s concerns about the Parchin site, claiming that it was sufficiently inspected by the agency in 2005.
The IAEA is focusing on one particular building at Parchin on the basis of member state intelligence contained within its recent report on Iran’s alleged weapons program. This building is said to hold a massive steel chamber designed to contain explosives development tests for implosion-type uranium bombs. The IAEA believes that such a chamber is a unique indicator of nuclear weapons development. The use of such a chamber is actually rare in historical nuclear weapons development and quite inappropriate for Iran. In fact, the IAEA has already reported that the most interesting alleged large-scale nuclear weapons high explosive tests were not conducted at Parchin, but hundreds of kilometers away at site called Marivan.
Parchin is a huge ammunition and explosives plant with perhaps 1000 buildings over an area of 40 square kilometers. Despite the fact that the entire plant shows many classical signatures of explosive operations, the IAEA has chosen to focus on one building alone. The IAEA states in its report that a very large chamber for containing explosive tests was said to have been installed at Parchin and then covered up by a building. It also claims that commercial satellite imagery is consistent with this but the earliest commercial satellite imagery shows only a finished building. The only way the IAEA could make this claim would be if it possessed earlier classified imagery. The IAEA further bolsters its case by using reports from unnamed human sources.
The massive steel explosives containment chamber in the building is said by the IAEA to be able to contain an explosion of 70 kg of high explosives. This is a world-class facility, especially as it was designed 15 years ago with the help of a former Soviet engineer. It is more likely that the container will hold about 10 kg of high explosives detonation. In any case, there are few if any tests involving uranium and high explosives that Iran needs to conduct in a container that is only there to hide traces of uranium.
In fact, the chamber is far too small to contain explosive proof tests of a full scale mock-up, and far too big to contain smaller tests of research interest. Thus, a container of this size is irrelevant to an Iranian nuclear weapons program. Some say that a container for explosives tests is a clear and unequivocal indication of nuclear weapons development. This is incorrect. Most nuclear weapon development tests have been carried out in the open air for obvious technical reasons. The IAEA is therefore risking its technical reputation on tenuous premises.
The reported chamber at Parchin is too big or too small but not the right size. It was designed and built in the late 1990s when Iran might have had a different set of requirements for nuclear weapon design. The most critical experiments Iran might have done in the alleged chamber are far too large for its unbelievable 70 kg high explosive capacity. But those same experiments were done at another test site near Marivan, hundreds of kilometers away, as described in great detail by the IAEA.
The container described by anonymous sources has a massive concrete collar around the middle to contain the huge blast and make it useful for experiments. This collar makes it difficult if not impossible to make the scientific measurements that Iran needs to make in the chamber that was designed. Flash x-ray, optical and especially neutron measurements would be difficult or impossible because of the collar.
The container has wash-down systems and a vacuum pump system that are appropriate for nanodiamond production rather than for explosives tests. It was supposed to have been built by an Iranian company with the capability to build relatively thin-walled pressure vessels for the oil industry. This company could not build a small chamber appropriate to contain a large blast so they would have built a larger, but thinner-walled chamber, to offset the weakness of their vessels.
Since November 2011 there have been press reports that the Parchin site has been ‘sanitized’ to remove traces of uranium. Uranium signatures are very persistent in the environment. Stories that bulldozers are being used to sanitize the chamber are irrelevant. If Iran is using hoses to wash contamination across a parking lot into a ditch, there will be enhanced opportunities for uranium collection if teams are allowed access. If an explosion chamber has been used with uranium and explosives, uranium will be detected no matter how hard the Iranians work to clean it. If a chamber using explosives and uranium has been used inside this building, the IAEA will find the particles as surely as they did in the aftermath of the Syrian reactor bombing.
Ultimately the IAEA is trying to force Iran to grant access to a military site where they have been told that nuclear-related activities have taken place. It is unlikely that the alleged chamber is being used for nuclear activities, if it even exists. If the IAEA succeeds in visiting the site and does not find evidence of nuclear weapons activities, its credibility will be seriously damaged and it will be unable to persuasively make the case for visits to more serious sites of concern inside Iran.
~
Robert Kelley is a SIRPI Associated Senior Research Fellow and a veteran of over 35 years in the US Department of Energy’s nuclear weapons complex, most recently at Los Alamos. He managed the centrifuge and plutonium metallurgy programs at Lawrence Livermore National Laboratory and was later Director of the Department of Energy Remote Sensing Laboratory, the premier US nuclear emergency response organization. He was also seconded by the USDOE to the IAEA where he served twice as a Director of the nuclear inspections in Iraq, in 1992 and 2001.
Objective of US and Israeli Policy is Economic Warfare Against Iran
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Gareth Porter: IAEA keeps Iran in “dock of global public opinion” while sanctions aim to weaken Iran as a regional power
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‘Crowing’ About Iran Sanctions Should Stop
By Daniel Joyner | JURIST | May 24, 2012
There is a good bit of “crowing” going on at the moment by US officials, particularly about the role of Western financial sanctions in “bringing Iran to the table” for negotiations with the International Atomic Energy Agency (IAEA) and the West about its nuclear program. For example, US Treasury Under-Secretary for Terrorism and Financial Intelligence David Cohen said regarding these sanctions:
“They [Iran] are increasingly isolated — diplomatically, financially and economically … I don’t think there is any question that the impact of this pressure played a role in Iran’s decision to come to the table.”
This assessment, however, reflects a good deal of peripheral blindness: both about the past and about the future of the Western sanctions program. If the question is: has the policy of institutional escalation at the IAEA and the UN Security Council (UNSC), and the imposition of sanctions on Iran by the UN, the US and the European Union (EU), had an influence on Iran’s actions and the development of a crisis between Iran and the West over its nuclear program, the answer is definitely yes. But not in the way these crowing US officials think.
The reasons that Iran stopped implementing its Additional Protocol safeguards agreement with the IAEA back in 2005, pulled back from meaningful discussions with the IAEA and the West at the same time, have since become entrenched in their determination not to give in to Western pressure, and even threatened to block the straits of Hormuz and send world oil prices skyrocketing, have been explicitly stated by Iran to be the decisions by the IAEA and the UNSC requiring Iran to cease its enrichment of uranium beginning in 2005, and the sanctions that have been imposed by the UNSC, and unilaterally by the US and the EU, since that time.
To put it simply, the West’s sanctions program is the reason that Iran pulled back from the negotiating table in the first place.
To now claim that Western sanctions have had the successful effect of bringing Iran back to the negotiating table is to ignore this broader view of the history of the crisis over Iran’s nuclear program, and the material role that Western sanctions have played in actually creating and intensifying the crisis.
With regard to the future of the crisis — if Iran and IAEA Director General Yukiya Amano, along with his Western clients, are able to come to an accord on reducing tensions between Iran and its critics over the coming weeks, that would, of course, be a welcome result for all sides and for the world generally. However, such a result will only realistically be produced through a negotiated plan that meets the fundamental requirements of both Iran and the West. That agreement will require compromises on both sides, and will undoubtedly include Iranian retention of its essential uranium enrichment capabilities and a continuation of enrichment activities within Iran.
There is no realistic prospect that the IAEA and the West will succeed in dictating to Iran the arbitrary and unreasonable terms that they have laid out in previous IAEA Board of Governors decisions and UNSC resolutions, including most problematically the complete cessation of uranium enrichment by Iran. Iran has made it perfectly clear, and most analysts agree, that this stated objective of Western institutional escalation and sanctions will not be a part of a negotiated final settlement.
Iran may indeed agree to produce more information for the IAEA. It may also agree to a broader list of facilities within Iran to be inspected by the IAEA . It may even agree to other confidence-building measures, such as re-implementation of the IAEA Additional Protocol, suspension of enrichment to 20 percent purity within Iran, and the export of 20 percent enriched stockpiles out of the country. But this is likely to be the extent of Iran’s concessions.
But again, the reason Iran ceased implementing the Additional Protocol in the first place was the Western sanctions program itself. And as for the increased information sharing, inspections list, and the other confidence building measures – had the institutional escalation and sanctions program not been chosen by the West it is very likely that Iranian cooperation could have been secured on these points simply through intelligent and creative diplomatic means.
So, with this broadened view of the effect of the Western sanctions program against Iran, let us return to the original question: have Western sanctions had an influence on Iran’s actions and on the development of the crisis between Iran and the West? Yes. And that influence has been to significantly deepen and prolong the crisis, and to produce the current negative diplomatic environment in which a simple return to negotiations can be heralded as a major positive step.
Did the sanctions bring Iran to the negotiating table? No. They are the reason Iran pulled back from the table to begin with. Will the sanctions produce what the IAEA and the West have stated as their objective: the complete cessation of uranium enrichment by Iran? Definitely not.
In light of this more comprehensive view of the effect of Western sanctions, the current crowing about the success of the sanctions program by US officials should be replaced by a sober re-evaluation of the West’s mishandling of the dispute with Iran from the beginning, and hopefully some lessons learned about ways to better handle future nuclear disputes.
For this purpose, I would recommend to the consideration of US officials Professor Stephen Walt’s excellently parsimonious and accurate explanation of the imprudence of current macro-trends in US policy toward arms control diplomacy — into which US policy and diplomacy on Iranian sanctions, unfortunately, perfectly fits.
In a March 2012 post on his blog at the website of Foreign Policy magazine, Walt makes this profound observation:
In short, instead of “arms control” being the product of mutual negotiation, as it was in the Cold War, it now consists of the United States making demands and ramping up pressure to get weak states to comply. Instead of being primarily a diplomatic process aimed at eliciting mutually beneficial cooperation (which might also help ameliorate mutual suspicions with current adversaries), arms control has become a coercive process designed to produce capitulation. This approach may have worked in a few cases . . . but its overall track record is paltry . . . [E]ven a country as powerful as the United States cannot simply dictate to others . . . and a disdain for genuine diplomacy (as opposed to merely issuing ultimatums and imposing sanctions) is getting in the way of potential deals that could reduce the risk of proliferation, dampen the danger of war, and enable U.S. leaders to turn their attention to other priorities. Being the world’s #1 power confers many advantages, but it can also be a potent source of blind and counterproductive arrogance.
Daniel Joyner is Professor of Law at the University of Alabama School of Law. His research interests are focused in nuclear weapons nonproliferation law and civilian nuclear energy law. He has also written extensively on international use of force law, and on the UN Security Council. He is the author of International Law and the Proliferation of Weapons of Mass Destruction (Oxford University Press, 2009) and Interpreting the Nuclear Nonproliferation Treaty (Oxford University Press, 2011).
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IAEA to pen nuclear agreement with Iran: Amano
Press TV – May 22, 2012
The International Atomic Energy Agency (IAEA) chief says Iran and the UN nuclear agency have made a decision to reach an agreement aimed at resolving issues related to the country’s nuclear energy program.
“A decision was made by me and [Iran’s top nuclear negotiator] Mr. [Saeed] Jalili to reach an agreement on the structured approach,” Yukiya Amano said in Vienna on Tuesday after returning from his visit to Iran.
“At this stage, I can say it will be signed quite soon, but I cannot say how soon it will be,” he added, describing the agreement as an “important development,” AFP reported.
The UN nuclear agency chief, accompanied by the IAEA Deputy Director General for Safeguards Herman Nackaerts and the agency’s Assistant Director General for Policy Rafael Mariano Grossi, arrived in Tehran on Monday for talks with senior Iranian officials.
“We had very good talks with [Yukiya] Amano today and, God willing, we will have good cooperation in the future,” Jalili said after his meeting with Amano in Tehran on Monday.
Amano’s remarks come as Iran and the P5+1 (Britain, China, France, Russia, and the United States plus Germany) are preparing to resume the second round of talks in Iraqi capital, Baghdad, on May 23.
The last round of the negotiations was held in the Turkish city of Istanbul on April 14.
Both sides hailed the discussions as constructive.
Iran Questions IAEA’s Resolve and Impartiality
By Kaveh L. Afrasiabi | Middle East Online | March 3, 2012
PALO ALTO (California) – In their recent visit to Iran, the high-level officials of the International Atomic Energy Agency (IAEA) missed a golden opportunity to resolve one of the lingering questions about Iran’s nuclear program, due to the personal intervention of the IAEA Director-General, Yukiya Amano, whose reports have raised suspicion of a “possible nuclear dimension.”
According to a source close to the Iranian nuclear negotiation team in Iran, during the two-day visit on February 20-21, the IAEA team headed by Herman Nackaerts, the Deputy Director-General for Safeguards, was informed that even though the purpose of the visit was for discussion of a framework to resolve the “ambiguities,” they were invited to visit the site at Marivan, cited in the November 2011 IAEA report for suspected “high explosive” tests pertaining to nuclear weapons — a charge denied by Tehran. Instead of accepting this invitation, and thus putting to rest one of IAEA’s stated concerns, the IAEA team declined the offer after consulting with Mr. Amano in Vienna. Amano ordered the team to return to Vienna immediately.
According to sources in Tehran, if Amano had permitted his team to inspect the Marivan site, then he would have had to mention the agency’s finding in his report due next week. “By personally intervening to torpedo a chance to lay to rest a key IAEA suspicion about Iran, unfortunately once again Mr. Amano proved his bias,” maintains the Tehran source.
Mr. Amano has been criticized in the past as being supportive of U.S. interests regarding Iran’s nuclear activities. On his appointment as head of the IAEA, Mr. Amano was referred to by U.S. diplomats as being “a friend” to U.S. interests, according to secret diplomatic cables released by Wikileaks in 2010.
In addition to failing to mention Iran’s offer to the IAEA inspection team to visit facilities at Marivan, Mr. Amano disingenuously complained of Iran’s failure to allow the IAEA team to inspect the military base at Parchin, despite the fact that in his own November 2011 report on Iran, he admits that the purpose of a visit would be “to discuss the issues identified.” This has led to Western media coverage describing Nackaerts’ trip as a “failure,” and blaming it on Iran’s “intransigence.”
Iranian witnesses suggest otherwise, indicating that the two sides made substantial progress on a six-step “draft modality” that would address the agency’s lingering concerns about Iran’s nuclear program. Although no final agreement was reached at the February meeting, Tehran insists that an agreement is still on the table and Iran is willing to implement it. The agreement includes a framework calling for “practical steps” to further Iran-IAEA cooperation, covering a future inspection of Parchin, which incidentally has been previously visited by the IAEA without ever finding anything “unusual.”
“We have had three rounds of negotiations with Mr. Nackaerts, twice in Tehran and once in Vienna, and we are getting very close to finalizing an agreement, barring any negative intervention by certain powers that manipulate the IAEA to perpetuate a crisis environment surrounding Iran’s peaceful nuclear program,” says a Tehran source on condition of anonymity.
Tehran has expressed its readiness to engage in a new round of nuclear talk with the representatives of the “5+1” nations (i.e., the UN Security Council’s Permanent Five plus Germany). From Iran’s perspective, for the coming talks to be successful the other side needs to be more attuned to Iran’s “confidence-building initiatives” such as the offer to IAEA to inspect a suspected site. Clearly, Mr. Amano must explain why he refused the offer and failed to make public Iran’s invitation.
According to recent admissions by various top US officials, including Defense Secretary Leon Paneta, the United States has no evidence that Iran is attempting to produce nuclear weapons. This means the Iran nuclear crisis is a “crisis of choice” rather than “necessity,” and its resolution requires dexterous diplomacy on the part of both sides.
This is not a time for military threat and intimidation. Given the admission by the IAEA, and reflected in its various reports, there is no evidence of military diversion in the development of nuclear material in Iran. All of Iran’s uranium enrichment activities — allowed under the articles of the Non-Proliferation Treaty — are covered by the IAEA’s routine inspections, as well as surveillance cameras. And Iran’s President Ahmadinejad has offered to suspend the 20 percent enrichment in return for an external supply of nuclear fuel for Iran’s medical reactor.
A prudent Western nuclear strategy toward Iran, one that would respect Iran’s nuclear rights, would continue to insist on Iran’s nuclear transparency, but refrain from threatening Iran with military strikes and or coercive “crippling sanctions.” Iran, like all other nations, has “inalienable rights” that are expressly recognized under the articles of the NPT.
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Kaveh Afrasiabi was an advisor to Iran’s Nuclear Negotiation Team (2004-2006), a former political science professor at Tehran University, and author of several books on Iran’s foreign and nuclear policies, including After Khomeini: New Directions in Iran’s Foreign Policy, Iran’s Nuclear Program: Debating Facts Versus Fiction, Iran’s Foreign Policy After September 11, and Iran Phobia and US Terror Plot, A Legal Deconstruction.
Copyright © 2012 Kaveh L. Afrasiabi
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