Joseph Cirincione

One more reason to worry about North Korea

This time, there is cause to be concerned about North Korea's threats. But there are also two reasons for hope.

  • more
    • All Share Services

One more reason to worry about North KoreaA North Korean soldier monitors a Chinese tour boat with binoculars along the Yalu River dividing China and North Korea near Dandong, northeastern China's Liaoning province, Wednesday, May 27, 2009.

Here is one more thing about North Korea that you haven’t worried about yet. Then, two more things that might make you feel better.

It is tempting to see recent events as only the most recent installment in a now-familiar pattern. A North Korea provocation is followed by global condemnation, then by Pyongyang’s hysterical threats, then by joint pressure that brings Pyongyang back into negotiations and a slow unwinding of its nuclear program.

This is the pattern from 1994, when we almost went to war over the plutonium program but ended with an Agreed Framework that froze the production of this bomb material for 10 years and gave North Korea badly needed fuel oil in return.

We went through it again in 2002 when the (as we now know, exaggerated) U.S. charges of North Korea’s cheating on the agreement caused the U.S. and the Democratic People’s Republic of Korea to pull out of their freeze-for-oil deal. The North then restarted plutonium production, leading to threats from both sides, followed by deft diplomacy that produced the first six-party talks and a September 2005 agreement to refreeze.

We repeated the pattern again in 2006. After the U.S. froze key Korean bank accounts, the North pulled out of the 2005 agreement. It restarted its nuclear program, tested missiles, tested its first nuclear device on Oct. 9, leading to condemnations and mutual threats, which led to Chinese diplomatic pressure and an apology from Korean leader Kim Jong Il by Oct. 20, the first direct US-DPRK talks by Oct. 31, and a new six-party agreement by December.

Will this pattern repeat? Probably. But this time there is reason to worry about miscalculation. This time the threats from the North are exceptionally harsh, and the maneuvering inside Pyongyang to succeed the ailing Kim Jong Il may push the situation toward confrontation rather than compromise. As the various North Korean players posture for power advantage, and the South Korean and Japanese officials, tired of these Northern games, push back, the risk of miscalculation leading to war grows.

The North, for example, has declared the truce that paused the Korean War void, and has said it will no longer recognize the borders at sea dividing North from South. Incidents at sea have often triggered wars. Think Gulf of Tonkin.

All the more reason that, whatever pressures points are pushed, the U.S. and the other members of the six-party process (China, Russia, Japan and South Korea) must be in close contact with North Korea and each other. Clear communications at this time are vital.

Now for the good news.

First, the sharp, rapid rebukes of the North’s nuclear test reveal a growing, global anti-nuclear sentiment. No nation supports North Korea. Most see a nuclear test by any nation as a threat to world security. They don’t just want an end to North Korea’s program, they want an end to nuclear weapons. As the New York Times editorializes in its endorsement of the comprehensive test ban:

A test ban will make it technologically much harder for other countries to press ahead with weapons development. And if Washington has any hope of rallying diplomatic pressure and economic sanctions for constraining Iran’s nuclear ambitions or North Korea’s program, it has to show that it, too, is willing to play by the international rules. For both of those reasons, the Senate needs to ratify the test ban treaty.

Second is the possibility of real cooperation with China and Russia that could contain and restart the rollback of the program. As Howard La Franchi reports for the Christian Science Monitor, “China and Russia, traditionally less eager to punish North Korea, are employing harsher rhetoric and reaffirming the need to walk the North back from nuclear status.” Diplomatic pressure would help, like the October 2006 visit to Pyongyang by China’s third highest official, State Counselor Tang Jiaxuan, that forced Kim Jong Il’s apology.

This time, we should match diplomacy with trade intercepts and intelligence sharing.

North Korea flies airplanes to Iran, Syria and other Middle East destinations over Chinese territory. What is in those planes? We don’t know. China does not inspect those that land on its tarmacs for refueling. What happens on the pads, stays on the pads. China could decide it has to inspect the cargoes for safety or customs compliance. This could put a serious crimp in whatever nuclear or missile trade the North is conducting.

Russia could help us understand the threat from North Korean missiles by sharing with the U.S. information on Russian technology transfers. Analysis by MIT’s Ted Postol for a recent independent joint U.S.-Russian assessment of the Iranian nuclear and missile programs concluded that North Korea is relying on Russian-supplied rocket engines for its long-range missiles. The engines from the SA-5 surface-to-air missile and the SS-N-6 submarine-launched ballistic missile seem to match perfectly the characteristics of the engines in the second and third stages of the North Korean missiles, respectively.

If true, this could have great significance. North Korea cannot manufacture these advanced engines. They likely obtained them from Russia during the chaotic years of the 1990s. But how many? If Russia shared this information with the U.S., we would know whether we faced a threat of a few more long-range missiles, or dozens. We could assess how likely North Korean sales to Iran might be. In short, we would have a much more accurate threat assessment than we do now. President Obama and Russian President Dmitry Medvedev pledged in their joint statement of April 1 to conduct “joint assessments.” This would be a great place to start.

As usual with North Korea, there is both peril and promise. There is nothing inherently permanent about a North Korean nuclear arsenal. Many other nations have been convinced to give up nuclear weapons or weapons programs. The United States, however, cannot solve this alone. We need to hold steady, increase communications, expand cooperation with key states, share intelligence and, most of all, make containing and rolling back the North Korean program part of a global effort to reduce and eliminate all nuclear weapons.

North Korea fallout

Kim Jong Il's nuclear test could set off a new arms race in Asia. Yet the White House has no viable plan for stopping the global spread of nukes.

  • more
    • All Share Services

North Korea fallout

We have suspected for more than 15 years that North Korea has separated plutonium from nuclear reactor fuel for use as the core of a nuclear bomb. If the test there on Monday of a nuclear device proves to be authentic, North Korean scientists will have demonstrated that they have designed an explosive casing that can compress plutonium to critical mass, triggering an explosion. North Korea will have become the world’s ninth nuclear-armed state.

The Bush administration appears divided over how to respond. Yet, despite some internal dissent, hard-liners in the administration have controlled the U.S. approach to North Korea since Bush took office. That approach has brimmed with tough talk and threats, while scorning diplomacy as a badge of weakness. The White House refuses to negotiate directly with North Korea — but it has no viable plan, military or otherwise, for stopping further tests. North Korea’s provocative move is the latest evidence that Bush’s strategy for preventing the global spread of nuclear weapons has failed.

The greatest danger is not that North Korea would attack us or our allies with this new capability, or even that they would provide a nuclear weapon to terrorists. Kim Jong Il would know that the response to the use of a North Korean bomb by him or his surrogates would end his life, his regime and a good part of his country. The greatest danger is what happens next in the region — and the specter of a new arms race that could fast spiral out of control.

South Korea and Taiwan had nuclear weapon programs they ended only under U.S. pressure in the early 1970s. In fact, South Korean scientists, we now know, were still conducting secret nuclear experiments in the 1970s, 1980s, and as recently as 2000. Surely North Korea’s latest move has at least some in South Korea and Taiwan thinking about restarting their programs.

Japan, also in range of North Korean weapons, may be even closer to a flash point. Shinzo Abe, the new, rightist prime minister of Japan, will certainly use the test to push for a more assertive Japanese military, and the strong antinuclear sentiment held by the Japanese public could evaporate. Japan has separated more than 23 tons of weapons-usable plutonium from reactor fuel and could have a nuclear arsenal within a few months of a decision to do so.

The fallout from an escalating arms race in the region could quickly spread across Asia. In India, where officials conducted five nuclear tests in 1998, scientists could push to test again. Pakistan could follow. The Nuclear Nonproliferation Treaty would be left in tatters.

Iran, another top target of the Bush administration, is watching closely. If North Korea gets away without punishment, the Iranian government will likely accelerate its “peaceful” nuclear program, which it claims is only for use as a source of energy. With the technology it has, Iran is five to 10 years away from the ability to make nuclear weapon material — but it will be much more difficult to limit the Iranian program in the wake of an accepted nuclear North Korea.

How did we get to this dismal point? The divide over North Korea, and indeed Bush’s entire approach to proliferation, has existed from the administration’s first days. On March 6, 2001, Secretary of State Colin Powell said he “would pick up where President Clinton left off” with North Korea — negotiations that had frozen for years both plutonium production and missile tests. The very next day President Bush cut Powell down, saying that any negotiations in his administration would have a “different tone” from those of his predecessor. Thus began the redefinition of diplomacy, from a process involving give-and-take to a policy of trying to coerce our adversaries into submission.

The Iraq war was the first implementation of this new approach to proliferation — one that explicitly aimed to eliminate regimes. Ostensibly, the war was intended to both remove Saddam Hussein and show other states the heavy price they would pay for pursuing weapons programs the United States opposed. When then-Under Secretary of State John Bolton was asked what lesson Iran and North Korea should draw from the war, he said, “Take a number.”

But the strategy has backfired miserably. Each member of the “Axis of Evil” is more dangerous to America today than when Bush labeled the group in January 2002. Iraq had no nuclear weapons, but it has been plunged into chaos and become a breeding ground for terrorists. Iran has advanced more in its nuclear program in the past five years than it did in the previous 10. North Korea ended its freeze and increased its estimated supply of plutonium from enough for two weapons to enough for perhaps 12. If it reprocesses another load of reactor fuel, as it recently threatened, the stockpile goes up by another five or six. If it continues its tests, it could perfect the design and shrink the package to one that a plane or medium-range missile could carry.

We must recognize Bush’s utterly failed policy and reverse course by putting diplomacy back at the center of our strategy. We can no longer afford the split between realists in the administration, like Secretary of State Condoleezza Rice and Assistant Secretary Christopher Hill, who want to negotiate with North Korea (and Iran), and the ideologues, led by Vice President Dick Cheney and Secretary of Defense Donald Rumsfeld, who want to overthrow both regimes. Hill negotiated a deal to end the North Korean program last September — only to have it torpedoed by sanctions imposed under Cheney’s direction. The sanctions hurt enough to infuriate the North Koreans but not enough to force them to capitulate. The deal collapsed.

The new United Nations Secretary-General, Ban Ki Moon, could help change the dynamic swiftly and dramatically. A South Korean, he has offered to mediate, and he may be ideally positioned to do so. He might offer to visit Pyongyang as long as there are no further tests. China could play a key role in negotiating this arrangement — and could apply its own pressure. China will never squeeze North Korea hard enough to force a collapse of the Kim regime; that would send millions of refugees streaming north and south. But China has shown it will press North Korea to come to the table — if China knows that the United States is committed to real bargaining and not just blustering.

This time President Bush must tell Cheney and Rumsfeld to back off. He must end the misguided diversions of John Bolton, the U.S. ambassador to the United Nations, a man whose pompous proposals have encouraged proliferation, not stopped it. Bush must free negotiators to follow the Libya model, where we change a regime’s behavior, not the regime.

The 2003 Libya deal, hinging on negotiations, cost us little in funding, nothing in lives, and was 100 percent effective in ending that nuclear program and reintegrating Libya into the world community. Even if such an effort fails with North Korea, we will have kept faith with our allies and laid the groundwork for an effective containment strategy, one that could isolate North Korea and possibly prevent the chain reaction of nuclear proliferation.

It is time to restore some realism to America’s relations with foreign powers — including our enemies — and to back our negotiators with the full range of American military, political and economic power. We have to take our national security policy back from the ideologues and speechwriters, have faith in our diplomats, and let them complete the job they have been aching to do for six long years.

Continue Reading Close