In the spring of 2012, the GOP’s foreign-policy elder statesman, Dick Lugar, was soundly defeated in a Republican Senate primary by Richard Mourdock, bringing an end to a six-term senatorial career. And when Mourdock needed help on the campaign trail for the general election, Lugar was unavailable. He was on his farewell tour–not on Capitol Hill but, according to Politico, in “Surovatikha, about 300 miles east of Moscow,” where “the two-time Foreign Relations Committee chairman dined in a dismantling facility as Russian officials ripped apart strategic missiles.” It was oddly appropriate as a send-off not only to Lugar, but also for U.S.-Russian Cold War-era cooperation since relegated to the scrap heap along with those missiles.
Lugar’s legacy rested on the joint efforts he spearheaded at the collapse of the Soviet Union to secure nuclear material across the empire. The program, whose mantelpiece featured the Nunn-Lugar Cooperative Threat Reduction at its center, was successful but unfinished. And now it is finished.
Not completed, mind you. On the contrary, the regime of Vladimir Putin has consistently chipped away at elements of the weapons-reduction program as relations between the two countries deteriorated. There is still plenty more work to be done, but the Russians officially put the Obama administration on notice that the remaining work, if it’s done at all, will be done by Russia. Cooperation will continue outside of Russia in other former Soviet countries, however.
The Boston Globe reveals the contents of that notice, as it was delivered to American officials at a meeting in December in Moscow:
In the previously undisclosed discussions, the Russians informed the Americans that they were refusing any more US help protecting their largest stockpiles of weapons-grade uranium and plutonium from being stolen or sold on the black market. The declaration effectively ended one of the most successful areas of cooperation between the former Cold War adversaries.
“I think it greatly increases the risk of catastrophic terrorism,” said Sam Nunn, the former Democratic senator from Georgia and an architect of the “cooperative threat reduction” programs of the 1990s.
Official word came in a terse, three-page agreement signed on Dec. 16. A copy was obtained by the Globe, and a description of the Moscow meeting was provided by three people who attended the session or were briefed on it. They declined to be identified for security reasons. …
Specialists said the final meeting was a dismaying development in a joint effort that the United States has invested some $2 billion in and had been a symbol of the thaw between East and West and of global efforts to prevent the spread of doomsday weapons. An additional $100 million had been budgeted for the effort this year and many of the programs were envisioned to continue at least through 2018.
To be sure, none of this was much of a surprise. Two weeks after Politico chronicled Lugar’s trip to the Russian east Vladimir Putin thanked him for his service by announcing the cancellation of Lugar’s great achievement. Even then, a deputy foreign minister had said, “This is not news.”
Then in November 2014, the Russians signaled that the end was near for nuclear cooperation more broadly. That appears to be what was put in writing a month later, and what is being reported now by the Globe.
There is some bitter irony here. The deterioration in U.S.-Russia relations picked up even more steam with Russia’s invasion of Ukraine and annexation of Ukrainian territory, followed by additional invasions in Ukraine’s east. The West hit Russia with modest sanctions but nothing especially serious, and Putin played the aggrieved party by backing further away from cooperation with the West.
Yet the invasions of Ukraine seem to have been made possible by the Budapest Memorandum of 1994, which was part of the East-West collaboration to rid the Soviet sphere of unsecured or uncontrolled nuclear material. In an effort to secure dangerous weapons, Ukraine gave up the nukes it inherited from the Soviet Union in return for a pledge from the U.S., UK, and Russia that Ukraine’s sovereignty would be respected. Ukraine would give up its nukes, that is, if there was no reason for Ukraine to have nukes.
In retrospect, this was naïve. “For a brief period, Ukraine was the world’s third-largest nuclear power,” noted Bloomberg in March of last year. It is unlikely the world’s third-largest nuclear power would be invaded by the world’s largest just to prove a point. That’s the thing about security: it doesn’t come from a piece of paper. For a country like Ukraine, caught between East and West, such a deal (and its inevitable dissolution) was a teaching moment. They learned that Russia knows facts on the ground trump memoranda, and plan accordingly. And they learned that the West, at least in the post-Cold War era, can’t be relied upon when the chips are down.