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"I want to thank the Arms Control Association … for being such effective advocates for sensible policies to stem the proliferation of weapons of mass destruction, and most importantly, reduce the risk of nuclear war."
– Senator Joe Biden
January 28, 2004
New START

The INF Treaty and New START Crisis and the Future of the NPT

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Description: 

Remarks by Daryl Kimball on behalf of NGO Representatives and Experts to the 2019 NPT PrepCom for the 2020 Review Conference at the United Nations in New York.

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The INF Treaty and New START Crisis and the Future of the NPT

Statement of NGO Representatives and Experts
to the 2019 NPT Prep Com for the 2020 Review Conference,
United Nations, New York

May 1, 2019

Since the NPT was signed 50 years ago, the United States and Russia have engaged in nuclear arms control negotiations and concluded strategic arms control and reduction treaties that have lowered tensions, reduced excess nuclear stockpiles, increased predictability and transparency, and helped to reduce the nuclear danger.

While the size of the U.S. and Russian nuclear stockpiles has been significantly reduced from their Cold War peaks, the dangers posed by the still excessive U.S. and Russian nuclear arsenals and launch-under-attack postures are still exceedingly high.

Today, each side can launch as many as 800 thermonuclear weapons in a first strike within about 20 minutes of the “go” order from either president. Each side would have hundreds more nuclear weapons available in reserve for further counterstrikes. The result would be a global catastrophe.

As then-presidents Ronald Reagan and Mikhail Gorbachev noted in their 1985 summit statement: “A nuclear war cannot be won and must never be fought.”

Further progress on nuclear disarmament – or in the very least active negotiations to that end – by the United States and Russia is at the core of their NPT Article VI obligation to "pursue negotiations in good faith on effective measures relating to cessation of the nuclear arms race at an early date and to nuclear disarmament, and on a treaty on general and complete disarmament under strict and effective international control."

Disarmament leadership from the United States and Russia, which possess the vast majority of the world’s nuclear firepower, is also critical to the essential task of engaging the world’s other nuclear-armed states in the global enterprise to achieve a world without nuclear weapons.

As we approach the NPT’s 2020 Review Conference, it is the considered view of a wide range of nongovernmental experts and organizations that the world’s two largest nuclear-armed states need to:

  • engage in serious talks to facilitate the extension of New START by five years, as allowed for in Article XIV of the Treaty;
  • reach an agreement that prevents deployments of destabilizing ground-based, intermediate-range missiles; and
  • resume regular, high-level talks on strategic stability to reduce the risk of miscalculation.

Failure by the U.S. and Russian leadership to take these steps would represent a violation of their NPT Article VI obligations and would threaten the very underpinnings of the NPT regime.

Unfortunately, relations between Washington and Moscow are at their lowest point since the mid-1980s, and their dialogue on nuclear arms control has been stalled since Russia rejected a 2013 offer from President Obama to negotiate further nuclear cuts beyond the modest reductions mandated by the 2010 New Strategic Arms Reduction Treaty.

Worse still, the two sides have not resumed their strategic stability talks since the last session was held in Helsinki in late-2017, and the future of two of the most important nuclear arms control agreements – the INF Treaty and New START – are in grave doubt.

The INF Treaty

In February, Washington and Moscow suspended their obligations under the landmark 1987 Intermediate-Range Nuclear Forces (INF) Treaty after failing to resolve their compliance dispute. Barring a diplomatic miracle, the United States is on course to withdraw from the treaty on August 2. The collapse of the INF Treaty opens the door to new and even more dangerous forms of missile competition.

Russia may deploy more of its 9M729 ground-launched cruise missiles, which the United States and NATO have determined are treaty noncompliant, and Russia has threatened to convert a sea-based cruise missile system for ground launch. For its part, the Trump administration has begun developing new, “more usable” low-yield nuclear warheads for use on D-5 submarine-launched strategic missiles, and the administration has announced that it will begin testing – before the end of this year – new ground-launched intermediate-range cruise missiles, which have been prohibited by the INF Treaty. Ukraine, a party to the INF Treaty, has suggested it might pursue INF missile development.

Whether nuclear-armed or conventionally-armed, ground-launched, intermediate-range missile systems are destabilizing because of their very short time-to-target capabilities afford little or no warning of attack.

Instead of a dangerous pursuit of such INF missile deployments, this conference must strongly encourage the INF states parties to refrain from deploying intermediate-range, ground-launched missiles and urge Moscow and Washington to engage in talks designed to produce a new INF-missile control arrangement.

For example, NATO could declare, as a bloc, that no alliance members will field any currently INF Treaty-prohibited missiles in Europe so long as Russia does not deploy treaty-prohibited systems where they could hit NATO territory. This would require Russia to move at least some currently deployed 9M729 missiles.

The U.S. and Russian presidents could agree to this “no-first INF missile deployment plan” through an executive agreement that would be verified through national technical means of intelligence. Russia could be offered additional confidence-building measures to ensure that the United States would not place offensive missiles in the Mk. 41 missile-interceptor launchers now deployed Europe as part of the Aegis Ashore system.

New START

Meanwhile, the START agreement, which verifiably caps each side’s strategic deployed arsenals to no more than 1,550 warheads and 700 strategic delivery systems, will expire in February 2021 unless extended or replaced.

Without a positive decision to extend New START, there would be no legally binding limits on the world’s two largest nuclear superpowers for the first time since 1972. The risk of unconstrained U.S.-Russian nuclear competition, and even more fraught relations, would grow.

In a March 2018 interview with NBC, President Putin voiced interest in an extension of New START or even possibly further cuts in warhead numbers. In April 2018, the Trump administration announced it is pursuing a “whole-of-government review” about whether to extend New START. In 2017, shortly before he became the U.S. National Security Advisor, John Bolton publicly called on President Trump to terminate New START.

New START clearly serves U.S. and Russian security interests. The treaty imposes important bounds on the strategic nuclear competition between the two nuclear superpowers.

Failure to extend New START, on the other hand, would compromise each side’s understanding of the other’s nuclear forces, open the door to unconstrained nuclear competition, and undermine international security.

Fortunately, the treaty can be extended by up to five years (to 2026) by a simple agreement by the two presidents—without complex negotiations and without further approval from the U.S. Senate or Russian Duma.

An agreement to extend New START requires the immediate start of consultations on key issues of concern to both sides.

Russia has raised concerns about the verification of the conversion of some U.S. nuclear weapons delivery systems to conventional roles. The United States, for its part, has understandably suggested that new Russian strategic nuclear weapons systems, including the Status-6 nuclear-armed, long-range, torpedo and the proposed nuclear-propelled, long-range cruise missile, should be accounted for under New START.

If both sides are willing to engage in a professional dialogue relatively soon, these issues can be addressed in a mutually agreed manner either before or soon after a decision to extend New START is taken.

New START extension would also provide additional time for Trump, or his successor, to pursue negotiations on more far-reaching nuclear cuts involving strategic and tactical nuclear systems, an understanding about the limits of U.S. strategic missile defenses, and limitations on non-nuclear strategic strike weapons that both sides are beginning to develop.

A Core Issue for NPT 2020

These issues must be central issues for this preparatory conference and all NPT States Parties before the 2020 Review Conference.

Some delegations claim that before progress on nuclear disarmament can be achieved, the right environment must be established. Such arguments overlook how progress on disarmament has been achieved in the past and can be achieved today.

Such arguments should not be allowed to distract from a disappointing lack of political will to engage in a common-sense nuclear risk reduction dialogue.

In reality, the current environment demands the resumption of a productive, professional dialogue between representatives of the White House and the Kremlin on nuclear arms control and disarmament.

The urgency of these problems also demands that all NPT states parties, as part of their own solemn legal responsibilities to uphold the NPT and advance their Article VI goals. NPT states parties should:

  • press Presidents Trump and Putin to relaunch the dialogue on strategic stability;
  • pledge to reach early agreement to extend the New START agreement; and
  • refrain from pursuing deployments of INF-prohibited missile systems in the European theater (or elsewhere) that produce a dangerous action-reaction cycle.

We strongly urge each delegation to emphasize these priority steps to ensure key states remain in compliance with the NPT and sustain progress toward the attainment of all of the treaty’s core goals and objectives.

Endorsed by:

Alexey Arbatov, member of the Russian Academy of Sciences (academician), head of the Center for International Security, Е.М. Primakov Institute for World Economy and International Relations, Russian Academy of Sciences, Member of Parliament (State Duma) in 1993-2003 and former deputy chair of the Defense Committee, member of the Soviet START I delegation

Dr. Christoph Bertram, Director, International Institute of Strategic Studies 1974-1982, Director, German Institute for International and Security Studies (SWP) 1998-2005

Dr. Bruce Blair, Program on Science and Global Security, Princeton; Co-founder, Global Zero, Former Member, Secretary of State International Security Advisory Board

Des Browne, former UK Secretary of State for Defence

Matthew Bunn, Professor of Practice, Harvard Kennedy School**

Joseph Cirincione, President, Ploughshares Fund

Lisa Clark and Reiner Braun, Co-Presidents, International Peace Bureau

Thomas Countryman, former acting U.S. Undersecretary of State for Arms Control and International Security and Chair of the Board of the Arms Control Association

Tarja Cronberg, Chair of the Peace Union of Finland and as a former member of the European Parliament

Jayantha Dhanapala, Ambassador, former UN Under-Secretary-General for

Disarmament Affairs, President 1995 NPT Review & Extension Conference, former

President Pugwash Conferences on Science & World Affairs

Sergio Duarte, President of the Pugwash Conferences on Science and Global Affairs, former UN high representative for disarmament, President of the 2005 NPT Review Conference, and a member of Brazil’s delegation to the Eighteen-Nation Disarmament Committee talks on the NPT

Beatrice Fihn, Executive Director, International Campaign to Abolish Nuclear Weapons

Dr. Joseph Gerson, President and CEO, Campaign for Peace Disarmament and Common Security

Jonathan Granoff, President, Global Security Institute, and UN Representative of the Permanent Secretariat of the World Summit of Nobel Peace Laureates

John Hallam, People for Nuclear Disarmament Human Survival Project, and Co-Convener, Abolition 2000 Nuclear Risk Reduction Working Group

Dr. Ira Helfand, Co-President, International Physicians for the Prevention of Nuclear War

Ambassador Bonnie Jenkins, former Coordinator for Threat Reduction Programs, U.S. Department of State, and Founder of Women of Color Advancing Peace, Security, and Conflict Transformation

Dr. Rebecca Johnson, Acronym Institute for Disarmament Diplomacy

Angela Kane, Senior Fellow, Vienna Center for Disarmament and Non-proliferation, former United Nations Under-Secretary General and High Representative for Disarmament

Dr. Catherine M. Kelleher, former Deputy Assistant Secretary of Defense for Russia, Ukraine and Eurasia, and the Secretary of Defense’s representative to NATO

Ambassador (ret.) Laura Kennedy, former U.S. Representative to the Conference on Disarmament

Daryl G. Kimball, Executive Director, Arms Control Association*

Michael Krepon, Co-founder, The Stimson Center

Richard G. Lugar, United States Senator (Ret.), President, The Lugar Center

Dr. Victor Mizin, Institute of World Economy and International Relations of the Russian Academy of Science, former Soviet/Russian diplomat

Prof. Götz Neuneck, Chair German Pugwash and Council Member Pugwash Conferences on Science and World Affairs

Ali Nouri, President, Federation of American Scientists

Olga Oliker, Director, Europe Program, International Crisis Group**

Jungeun Park, Secretary General, People's Solidarity for Participatory Democracy (RoK)

Thomas Pickering, former U.S. Under Secretary of State for Political Affairs, former U.S. Ambassador to the United Nations and the Russian Federation

Amb. (ret.) Steven Pifer, William J Perry Fellow, Center for International Security and Cooperation, Stanford University**

Dr. William C. Potter, Sam Nunn and Richard Lugar Professor of Nonproliferation Studies, Middlebury Institute of International Studies at Monterey

Guy C. Quinlan, President, Lawyers Committee on Nuclear Policy

Susi Snyder, Nuclear Disarmament Programme Manager, PAX (Netherlands)

John Tierney, Executive Director, Council for a Livable World, and Executive Director, Center for Arms Control and Non-Proliferation

Greg Thielmann, former Director of the Office of Strategic, Proliferation, and Military Affairs in the State Department's Bureau of Intelligence and Research

Sir Adam Thomson, Chief Executive, European Leadership Network

Aaron Tovish, Executive Director, Zona Libre

Hiromichi Umebayashi, Founder & Special Advisor, Peace Depot Inc. Japan

Rick Wayman, Deputy Director, Nuclear Age Peace Foundation

Anthony Wier, Legislative Secretary for Nuclear Disarmament and Pentagon Spending,

Friends Committee on National Legislation

*Statement coordinator

** Institution listed for identification purposes only

Country Resources:

Trump Arms Control Gambit: Serious or a Poison Pill?

Smart U.S. leadership is an essential part of the nuclear risk reduction equation.


May 2019
By Daryl G. Kimball

Smart U.S. leadership is an essential part of the nuclear risk reduction equation. Unfortunately, after more than two years into President Donald Trump’s term in office, his administration has failed to present a credible strategy to reduce the risks posed by the still enormous U.S. and Russian nuclear arsenals, which comprise more than 90 percent of the world’s nuclear weapons.

National Security Advisor John Bolton (R), listens to President Donald Trump during a briefing from senior military leaders, in the Cabinet Room on April 9, 2018. (Photo by Mark Wilson/Getty Images)Instead, Trump has threatened to accelerate and “win” an arms race with nuclear-armed Russia and China as tensions with both states have grown. Trump has shunned a proposal supported by his own Defense and State departments to engage in strategic stability talks with Moscow. Trump also has ordered the termination of the 1987 Intermediate-Range Nuclear Forces Treaty without a viable plan B, and his national security team has dithered for more than a year on beginning talks with Russia to extend the 2010 New Strategic Arms Reduction Treaty (New START) before it expires in February 2021.

Now, the president is dropping hints that he wants some sort of grand, new arms control deal with Russia and China. “Between Russia and China and us, we’re all making hundreds of billions of dollars’ worth of weapons, including nuclear, which is ridiculous,” Trump said on April 4 as he hosted Chinese Vice Premier Liu He in the Oval Office.

According to an April 25 report in The Washington Post, Trump formally ordered his team to reach out to Russia and China on options for new arms control agreements. The instructions on Russia apparently call for the pursuit of limits on so-called nonstrategic nuclear weapons, a category of short-range, lower-yield weapons that has never been subject to a formal arms control arrangement.

At first glance, that may sound promising. Bringing other nuclear actors and all types of nuclear weapons into the disarmament process is an important and praiseworthy objective. But this administration has no plan, strategy, or capacity to negotiate such a far-reaching deal. Even if it did, negotiations would likely take years. 

China, which is estimated to possess a total of 300 nuclear warheads, has never been party to any agreement that limits the number or types of its nuclear weaponry. Beijing is highly unlikely to engage in any such talks until the United States and Russia significantly cut their far larger arsenals, estimated at 6,500 warheads each.

Russian President Vladimir Putin may be open to broader arms control talks with Trump, but he has a long list of grievances about U.S. policies and weapons systems, particularly the ever-expanding U.S. missile defense architecture. The Trump administration’s 2019 Missile Defense Review report says there can be no limits of any kind on U.S. missile defenses—a nonstarter for Russia. 

These realities, combined with the well-documented antipathy of Trump’s national security advisor, John Bolton, to New START strongly suggest that this new grand-deal gambit does not represent a serious attempt to halt and reverse a global arms race.

It is more likely that Trump and Bolton are scheming to walk away from New START by setting conditions they know to be too difficult to achieve.

With less than two years to go before New START expires, Washington and Moscow need to begin working immediately to reach agreement to extend the treaty by five years. Despite their strained relations, it is in their mutual interest to maintain verifiable caps on their enormous strategic nuclear stockpiles.

Without New START, which limits each side to no more than 1,550 deployed strategic warheads and 700 deployed strategic delivery vehicles, there will be no legally binding limits on the world’s two largest nuclear arsenals for the first time in nearly five decades.

Extending New START would provide a necessary foundation and additional time for any follow-on deal with Russia that addresses other issues of mutual concern, including nonstrategic nuclear weapons, intermediate-range weapons, and understandings on the location and capabilities of missile defense systems and advanced conventional-strike weapons that each country is developing.

A treaty extension could help put pressure on China to provide more information about its nuclear weapons and fissile material stockpiles. China also might be more likely to agree to freeze the overall size of its nuclear arsenal or agree to limit a certain class of weapons, such as nuclear-armed cruise missiles, so long as the United States and Russia continue to make progress to reduce their far larger and more capable arsenals.

If in the coming weeks, however, Team Trump suggests China must join New START or that Russia must agree to limits on tactical nuclear weapons as a condition for its extension, that should be recognized as a disingenuous poison pill designed to create a pretext for killing New START.

Before Trump and Bolton try to raise the stakes for nuclear arms control success, they must demonstrate they are committed to working with Russia to extend the most crucial, existing agreement: New START.

U.S. Seeks Broader Nuclear Arms Pact

Administration opens door to negotiations on new weapons, new partners.


May 2019
By Kingston Reif and Shervin Taheran

President Donald Trump has ordered his staff to seek a new agreement on nuclear weapons that would encompass all Russian and Chinese nuclear arms, senior administration officials told reporters in April. Currently, the United States and Russia abide by the bilateral 2010 New Strategic Arms Reduction Treaty (New START) that limits only deployed strategic weapons and does not involve China. The treaty is due to expire in February 2021, but the pact allows the two sides to extend it for up to five years.

Russian Deputy Foreign Minister Sergei Ryabkov (center), speaking here at January conference in Beijing, suggested in April that any future U.S.-Russian arms control talks would need to address a variety of previously unnegotiated issues. (Photo: Thomas Peter/Getty Images)“The president has made clear that he thinks that arms control should include Russia and China and should include all the weapons, all the warheads, all the missiles,” said a senior White House official on April 25. “We have an ambition to give the president options as quickly as possible to give him as much space on the calendar as possible.”

Sergei Ryabkov, Russia’s deputy foreign minister, suggested Moscow’s response would depend on the nature of any U.S. proposals. “Further steps towards nuclear disarmament will require creating a number of prerequisites and taking into account many factors that have a direct impact on strategic stability” including missile defense systems, cyber weapons, weapons development in space, and advanced conventional arms, he said in an April 26 news briefing.

The Trump administration has shown no indication that it would be willing to limit these weapons in an agreement with Russia and China. Even if it were willing to do so, it is highly unlikely an agreement could be reached before New START expires in less than two years.

The president’s new order followed his April 4 comments at the White House, while sitting next to Chinese Vice-Premier Liu He, on the need for the United States, Russia, and China to reduce the numbers of and spending on nuclear weapons.

“Between Russia and China and us, we’re all making hundreds of billions of dollars’ worth of weapons, including nuclear [weapons], which is ridiculous…. We have to be the leader. I think it’s much better if we all got together and we didn’t make these weapons…. And those three countries, I think, can [come] together and stop the spending and spend on things that maybe are more productive toward long-term peace,” Trump said.

Senior administration officials echoed the president’s desire to include China in arms control. The Trump administration is “at the very beginning of conversations about renewing” New START, said Secretary of State Mike Pompeo in April 10 testimony before the Senate Foreign Relations Committee. “If we can get the deal right, if we can make sure that it fits 2021 and beyond, President [Donald] Trump has made very clear that if we can get a good, solid arms control agreement, we ought to get one.”

Remaining unclear is whether Pompeo was referring to conversations within the Trump administration, conversations with Russia, or both. Administration officials have been saying for months that they are in the early stages of formulating the U.S. position on an extension, arguing that plenty of time remains before the treaty lapses. Several factors would guide a decision, according to the officials, including how Russia pursues its concerns about U.S. compliance with the pact, whether Russia would agree to limit new strategic weapons it is developing, and Russian compliance with other arms control agreements.

Pompeo appeared to add additional factors at the hearing, suggesting that future arms control agreements should incorporate more nations. “We need to make sure that we've got all of the parties that are relevant,” he said. “It’s very different today in the world than it was” when New START was completed, he added. Asked to clarify which nations should be included, Pompeo said, “[I]t’s certainly China that has large numbers.”

Russian officials have also offered ambiguous projections for New START’s future. Anatoly Antonov, Russian ambassador to the United States, said Russia is ready to discuss extending the treaty, but repeated previously stated concerns about U.S. compliance with some of the pact’s conversion procedures.

“The extension of the New START is not a simple technicality that could be resolved in a couple of weeks,” he said at the Arms Control Association’s April 15 annual meeting. “Serious issues must be settled.”

Antonov also said that the full array of Russia’s planned new nuclear weapons would not be covered by New START, so any limits on them would need “another round of negotiations,” which would require Senate and Duma approval.

Meanwhile, the treaty’s dispute resolution forum, the Bilateral Consultative Commission, met in April, according to an April 12 release from the U.S. State Department. It was 17th meeting of the commission, which meets twice yearly.

Several current and former U.S. military officials have recently lamented the reduced level of communication and dialogue between the United States and Russia.

“During the Cold War, we understood each other’s signals. We talked,” said U.S. Army Gen. Curtis Scaparrotti, the top military commander in Europe, in an April interview. “I’m concerned that we don’t know them as well today.”

 

U.S.-Russian Experts, Fmr. Officials Urge New START Extension, Renewed U.S.-Russian Strategic Dialogue

In the latest in a series of expert conferences and dialogues in Moscow and Washington, a group of distinguished U.S. and Russian experts released a public statement calling on U.S. and Russian officials to get back to the arms control negotiating table, with the first order of business being agreement on a five-year extension of the 2010 New Strategic Arms Reduction Treaty (New START), as allowed for in Article XIV of the treaty, and talks designed to head-off new arms competition in the wake of the likely termination of the 1987 Intermediate-Range Nuclear Forces (INF) Treaty. The April 10...

The NPT and the Conditions for Nuclear Disarmament

Fifty years ago, shortly after the conclusion of the 1968 nuclear Nonproliferation Treaty (NPT), the United States and the Soviet Union launched the Strategic Arms Limitation Talks (SALT). Negotiated in the midst of severe tensions, the SALT agreement and the Anti-Ballistic Missile (ABM) Treaty were the first restrictions on the superpowers’ massive strategic offensive weapons, as well as on their emerging strategic defensive systems. The SALT agreement and the ABM Treaty slowed the arms race and opened a period of U.S.-Soviet detente that lessened the threat of nuclear war.


April 2019
By Daryl G. Kimball, Executive Director

Fifty years ago, shortly after the conclusion of the 1968 nuclear Nonproliferation Treaty (NPT), the United States and the Soviet Union launched the Strategic Arms Limitation Talks (SALT). Negotiated in the midst of severe tensions, the SALT agreement and the Anti-Ballistic Missile (ABM) Treaty were the first restrictions on the superpowers’ massive strategic offensive weapons, as well as on their emerging strategic defensive systems. The SALT agreement and the ABM Treaty slowed the arms race and opened a period of U.S.-Soviet detente that lessened the threat of nuclear war.

View of the Soviet delegation (left) and United States negotiating team (right) sitting together during Strategic Arms Limitation Talks (SALT) in Vienna, Austria circa 1970. Negotiations would last from 1969 until May 1972 at a series of meetings in both Helsinki and Vienna and result in the signing of the SALT I agreement between the United States and Soviet Union in May 1972. (Photo by Keystone/Getty Images)The size of U.S. and Russian nuclear stockpiles has decreased significantly from their Cold War peaks, but the dangers posed by the still excessive arsenals and launch-under-attack postures are even now exceedingly high.

Further progress on nuclear disarmament by the United States and Russia has been and remains at the core of their NPT Article VI obligation to “pursue negotiations in good faith on effective measures relating to cessation of the nuclear arms race at an early date and to nuclear disarmament.”

But as the 2020 NPT Review Conference approaches, the key agreements made by the world’s two largest nuclear powers are in severe jeopardy. Dialogue on nuclear arms control has been stalled since Russia rejected a 2013 U.S. offer to negotiate nuclear cuts beyond the modest reductions mandated by the 2010 New Strategic Arms Reduction Treaty (New START).

More recently, the two sides have failed to engage in serious talks to resolve the dispute over Russian compliance with the 1987 Intermediate-Range Nuclear Forces (INF) Treaty, which will likely be terminated in August. Making matters worse, talks on extending New START, which is due to expire in 2021, have not begun.

Last year, Russia said it was interested in extending New START, but Team Trump will only say it remains engaged in an interagency review of the treaty. That review is led by National Security Advisor John Bolton, who publicly called for New START’s termination shortly before he joined the administration.

New START clearly serves U.S. and Russian security interests. The treaty imposes important bounds on the strategic nuclear competition between the two nuclear superpowers. Failure to extend New START, on the other hand, would compromise each side’s understanding of the others’ nuclear forces, open the door to unconstrained nuclear competition, and undermine international security. Agreement to extend New START requires the immediate start of consultations to address implementation concerns on both sides.

Instead of agreeing to begin talks on a New START extension, U.S. State Department officials claim that “the United States remains committed to arms control efforts and remains receptive to future arms control negotiations” but only “if conditions permit.”

Such arguments ignore the history of how progress on disarmament has been and can be achieved. For example, the 1969–1972 SALT negotiations went forward despite an extremely difficult geostrategic environment. As U.S. and Russian negotiators met in Helsinki, President Richard Nixon launched a secret nuclear alert to try to coerce Moscow’s allies in Hanoi to accept U.S. terms on ending the Vietnam War, and he expanded U.S. bombing into Cambodia and Laos. Meanwhile, the Soviet Union sent 20,000 troops to Egypt to back up Cairo’s military campaign to retake the Sinai Peninsula from Israel. In late 1971, Nixon risked war with the Soviet Union and India to help put an end to India's 1971 invasion of East Pakistan.

Back then, the White House and the Kremlin did not wait until better conditions for arms control talks emerged. Instead, they pursued direct talks to achieve modest arms control measures that, in turn, created a more stable and predictable geostrategic environment.

Today, U.S. officials, such as Christopher Ford, assistant secretary of state for international security and nonproliferation, argue that the NPT does not require continual progress on disarmament and that NPT parties should launch a working group to discuss how to create an environment conducive for progress on nuclear disarmament.

Dialogue between nuclear-armed and non-nuclear-weapon states on disarmament can be useful, but the U.S. initiative titled “Creating an Environment for Nuclear Disarmament” must not be allowed to distract from the Trump administration’s lack of political will to engage in a common-sense nuclear arms control and risk reduction dialogue with key nuclear actors.

The current environment demands a productive, professional dialogue between Washington and Moscow to extend New START by five years, as allowed by Article XIV of the treaty; to reach a new agreement that prevents new deployment of destabilizing ground-based, intermediate-range missiles; and maintain strategic stability and reduce the risk of miscalculation.

Ahead of the pivotal 2020 NPT Review Conference, all states-parties need to press U.S. and Russian leaders to extend New START and pursue further effective measures to prevent an unconstrained nuclear arms race. Failure to do so would represent a violation of their NPT Article VI obligations and would threaten the very underpinnings of the NPT regime.

 

 

New START Extension Debated

U.S. and Russian officials see no quick and easy extension to New START.


April 2019
By Shervin Taheran

Prospects for extending the New Strategic Arms Reduction Treaty (New START) appeared to dim in March as U.S. and Russian officials threw cold water on the idea of a quick or easy extension process. The treaty capping deployed strategic nuclear weapons in both countries is due to expire in February 2021, but it could be extended for up to five years by mutual agreement.

Air Force Gen. John Hyten, head of the U.S. Strategic Command, testifies to Congress in 2017. He recently described himself as a supporter of the New Strategic Arms Reduction Treaty. (Photo: Alex Wong/Getty Images)U.S. officials have avoided expressing a public position on extending the treaty and have expressed concern about Russia’s strategic weapons plans. Yleem Poblete, U.S. assistant secretary of state for arms control, verification, and compliance, told the UN Conference on Disarmament (CD) in Geneva on March 19 that Russia “remains in compliance” with the treaty, but she questioned whether Russia’s development of new nuclear weapons were the actions of a “responsible stakeholder.” One week earlier, Andrea Thompson, U.S. undersecretary of state for arms control and international security, told a Washington nuclear policy conference that the remaining two-year period offers plenty of time to review the pact.

For their part, Russian officials have expressed concerns about U.S. compliance with New START and have suggested that lengthy talks may be needed to resolve them. Russia has questioned U.S. procedures to convert some weapons launchers from nuclear to conventional roles. The two nations need to “solve the problem” related to the conversion procedures, which Russia “cannot certify,” said Russian Foreign Minister Sergey Lavrov at the Geneva conference one day after Poblete spoke. (See ACT, March 2019.)

According to Lavrov, Russia has put forth “possible solutions,” adding that “it is a question of political will in Washington.” Any such talks would require significant time, Russian officials have said, quashing the hopes of some that the treaty could be extended quickly by a new U.S. president if President Donald Trump fails to win re-election in November 2020.

“It is clear for us that first you have to have a dialogue,” said Anatoly Antonov, Russian ambassador to the United States, at the Washington conference. “We hope to find solutions before we put our signature on any document.”

Introducing potential further complications, Lavrov said the deterioration of arms control agreements such as the Intermediate-Range Nuclear Forces Treaty shows that nuclear arms reductions “can no longer be sustained in a bilateral U.S.-Russia format” and that a multilateral process should be launched.

Meanwhile, the international community has strengthened calls for the treaty’s extension. Notably, UN Secretary-General António Guterres spoke at the Feb. 25 opening of the CD’s 2019 session to urge the United States and Russia to extend the pact. The treaty is “the only international legal instrument limiting the size of the world’s two largest nuclear arsenals,” he said, praising the agreement’s confidence-building and inspection measures.

Contributing to the Trump administration’s consideration of New START, a senior U.S. military official expressed support for the treaty during Feb. 26 congressional testimony.

U.S. Air Force Gen. John Hyten, head of U.S. Strategic Command, told the Senate Armed Services Committee that the treaty allows him to “understand what [Russia’s] limits are and…position my force accordingly.” New START also provides “unbelievably important” insight about Russian nuclear weapons activities, he said, adding that the United States has “very good intelligence capabilities, but there’s really nothing that can replace the eyes-on, hands-on ability to look at something.”

Hyten’s support was not unconditional, as he also expressed concerns about planned Russian strategic weapons, including a new underwater torpedo, a globe-circling nuclear-powered cruise missile, and a hypersonic glide vehicle. None of these would be constrained by the treaty, and Hyten said the State Department is “reaching out to the Russians and the Russians are not answering favorably.”

The Russian Foreign Ministry responded to Hyten’s remarks by saying that U.S. concerns “outside of the purview of the New START Treaty could be considered in the context of a strategic dialogue” but “Washington stubbornly avoids this dialogue and prefers to whip up hysteria in the public space.”

 

U.S.-Russian Nuclear Arms Control Watch, March 20, 2019

U.S. Plans Flight Tests of INF-Treaty Range Missiles Defense Department officials told a group of reporters March 13 that the Pentagon is planning to test two types of conventional missiles currently prohibited by the 1987 Intermediate-Range Nuclear Forces (INF) Treaty by the end of this year. The announcement comes just over a month after the Trump administration announced Feb. 2 that it would withdraw from the treaty Aug. 2 unless Russia returns to compliance with the agreement. The first missile, a ground-launched cruise missile with a range of roughly 1,000 km (600 miles), will likely be...

How Congress Can Leverage Action on New START

Every U.S. president since John Kennedy has successfully concluded at least one agreement with Russia or the Soviet Union to reduce nuclear dangers. These agreements have helped to slash nuclear stockpiles, manage nuclear competition, and provide greater stability, thereby reducing the risk of nuclear catastrophe between the world’s two largest nuclear actors.


March 2019
By Daryl G. Kimball, Executive Director

Every U.S. president since John Kennedy has successfully concluded at least one agreement with Russia or the Soviet Union to reduce nuclear dangers. These agreements have helped to slash nuclear stockpiles, manage nuclear competition, and provide greater stability, thereby reducing the risk of nuclear catastrophe between the world’s two largest nuclear actors.

The sun rises behind the U.S. Capitol on December 17, 2010, when the full U.S. Senate debated its Resolution of Ratification for New START. (Photo: Mark Wilson/Getty Images)In March 2018, President Donald Trump said he wanted to work with Russian President Vladimir Putin “to discuss the arms race, which is getting out of control.”

Since then, however, Trump and Putin have barged ahead with costly plans to replace and upgrade their massive nuclear arsenals. The bilateral nuclear relationship has gone from bad to worse.

The July 2018 Trump-Putin summit in Helsinki yielded nothing, not even an agreement to resume “strategic stability” talks. The simmering dispute over Russia’s violation of the 1987 Intermediate-Range Nuclear Forces (INF) Treaty reached the boiling point in October 2018 when Trump said he would terminate the pact, which had eliminated an entire class of nuclear weapons.

Worse still, the United States and Russia have not begun talks to extend the 2010 New Strategic Arms Reduction Treaty (New START), which caps each side’s deployed strategic warheads to no more than 1,550 and delivery vehicles to no more than 700.

Without the INF Treaty or New START, there would be no legally binding, verifiable limits on U.S. or Russian nuclear arsenals for the first time since 1972.

Because there is no realistic chance to negotiate a New START replacement by 2021, the logical step for both sides is simply to extend the treaty by five years to 2026, as allowed in Article XIV of the agreement. Putin has indicated he would like to begin talks to extend the treaty, but Trump remains undecided.

The U.S. military continues to see great value in New START. In a December 2018 report to Congress, the Defense Department said that, without the treaty “the United States would lose access to valuable information on Russian strategic forces, as well as access to Russian strategic facilities.”

Unfortunately, National Security Advisor John Bolton, who called for abandoning New START before he joined the Trump administration, is leading the ongoing interagency review on the treaty’s extension. Sources indicate Bolton, true to form, is pushing to nix New START.

With the future of New START in jeopardy, members of Congress from both sides of the aisle need to step in and use the power of the purse to attempt to prevent Trump and Bolton from blowing up the last remaining U.S.-Russian nuclear arms control agreement and to bring nuclear weapons costs under control.

As Sen. Robert Menendez (D-N.J.), ranking member on the Foreign Relations Committee, noted last September, “[B]ipartisan support for nuclear modernization is tied to maintaining an arms control process that controls and seeks to reduce Russian nuclear forces.… We’re not interested in writing blank checks for a nuclear arms race with Russia.”

To send a message to the administration, Congress this year should prohibit funding to increase the number of nuclear weapons above the limits set by New START, so long as Russia continues to stay below treaty ceilings. Such an approach would guard against a breakout by either side and help to maintain strategic stability.

As the Defense Department reported to Congress in 2012, Russia “would not be able to achieve a militarily significant advantage by any plausible expansion of its strategic nuclear forces, even in a cheating or breakout scenario under the New START Treaty, primarily because of the inherent survivability of the planned U.S. strategic force structure.”

Congress should also take steps to challenge the Trump administration’s excessive nuclear force plans, especially if the administration is going to default on its obligation to limit and reduce excess Russian and U.S. nuclear forces.

The Trump plans call for spending roughly $500 billion over the next 10 years to maintain and replace U.S. nuclear delivery systems and their associated warheads and supporting infrastructure, according to the Congressional Budget Office. This enormous and growing bill is unsustainable and unnecessary. According to a 2013 Pentagon assessment, U.S. strategic nuclear force levels are at least one-third larger than necessary to deter nuclear attack.

More realistic and affordable options to maintain a credible nuclear arsenal can and should be pursued regardless of whether New START is extended. But Congress must also make clear to the administration that the evisceration of arms control is unacceptable.

One option Congress could pursue is to freeze funding for the major nuclear delivery system and warhead modernization programs at today’s levels, which would force delays in the schedules for these programs. This would get the attention of the White House and Pentagon and put pressure on the administration to make the right decision on New START.

If Trump is not ready or able to take the steps necessary to prevent a dangerous new U.S.-Russian nuclear arms race, Congress should be ready to do so.

TAKE ACTION: Tell Congress No Funding for U.S. INF Missiles in Europe

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The INF Treaty prohibited all U.S. and Soviet missiles with ranges between 500 and 5,500 kilometers. The official figures above show missiles deployed November 1, 1987, shortly before the INF Treaty was signed. The treaty also required destruction of 430 U.S. missiles and 979 Soviet missiles which were in storage or otherwise not deployed. The treaty prevented the planned deployment of an additional 208 GLCMs in the Netherlands, Britain, Belgium, Germany, and Italy. The Pershing IAs, under joint U.S.-German control, were not formally covered by the INF Treaty but were also to be eliminated by U.S. and West German agreement. The 1987 Intermediate-Range Nuclear Forces (INF) Treaty led to the verifiable elimination of over 2,500 Soviet and U.S. missiles based in Europe and helped bring an end to the Cold War.

But now, the United States and Russia are on course to withdraw from the INF Treaty in six months over a long-running dispute over Russian compliance with the treaty.

Termination of the INF Treaty opens the door for Russia and the United States to develop and deploy more and new types of ground-launched intermediate-range missiles–a move that would increase the risks of a destabilizing new missile race.

You can help stop this!

A group of leading U.S. Senators has re-introduced the "Prevention of Arms Race Act of 2019," which would prohibit funding for the procurement, flight-testing, or deployment of a U.S. ground-launched or ballistic missile until the Trump Administration meets seven specific conditions, including identifying a U.S. ally formally willing to host such a system, and in the case of a European country, have it be the outcome of a NATO-wide decision.

This bill is a step in the right direction. New U.S. ground-launched cruise deployments in Europe or elsewhere would cost billions of dollars, take years to complete, and are militarily unnecessary to defend NATO allies because existing weapons systems can already hold key Russian targets at risk.

Your Senators need to hear from you.

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U.S.-Russian Nuclear Arms Control Agreements at a Glance

June 2017

Contact: Daryl Kimball, Executive Director, (202) 463-8270 x107; Kingston ReifDirector for Disarmament and Threat Reduction Policy, (202) 463-8270 x104

Updated: February 2019

Over the past four decades, American and Soviet/Russian leaders have used a progression of bilateral agreements and other measures to limit and reduce their substantial nuclear warhead and strategic missile and bomber arsenals. The following is a brief summary.

Strategic Nuclear Arms Control Agreements

SALT I

Begun in November 1969, by May 1972, the Strategic Arms Limitation Talks (SALT) had produced both the Anti-Ballistic Missile (ABM) Treaty, which limited strategic missile defenses to 200 (later 100) interceptors each, and the Interim Agreement, an executive agreement that capped U.S. and Soviet intercontinental ballistic missiles (ICBM) and submarine-launched ballistic missile (SLBM) forces. Under the Interim Agreement, both sides pledged not to construct new ICBM silos, not to increase the size of existing ICBM silos “significantly,” and capped the number of SLBM launch tubes and SLBM-carrying submarines. The agreement ignored strategic bombers and did not address warhead numbers, leaving both sides free to enlarge their forces by deploying multiple warheads (MIRVs) onto their ICBMs and SLBMs and increasing their bomber-based forces. The agreement limited the United States to 1,054 ICBM silos and 656 SLBM launch tubes. The Soviet Union was limited to 1,607 ICBM silos and 740 SLBM launch tubes. In June 2002, the United States unilaterally withdrew from the ABM treaty.

SALT II

In November 1972, Washington and Moscow agreed to pursue a follow-on treaty to SALT I. SALT II, signed in June 1979, limited U.S. and Soviet ICBM, SLBM, and strategic bomber-based nuclear forces to 2,250 delivery vehicles (defined as an ICBM silo, a SLBM launch tube, or a heavy bomber) and placed a variety of other restrictions on deployed strategic nuclear forces. The agreement would have required the Soviets to reduce their forces by roughly 270 delivery vehicles, but U.S. forces were below the limits and could actually have been increased. However, President Jimmy Carter asked the Senate not to consider SALT II for its advice and consent after the Soviet Union invaded Afghanistan in December 1979, and the treaty was not taken up again. Both Washington and Moscow subsequently pledged to adhere to the agreement’s terms despite its failure to enter into force. However, on May 26, 1986, President Ronald Reagan said that future decisions on strategic nuclear forces would be based on the threat posed by Soviet forces and not on "a flawed SALT II Treaty.”

START I

The Strategic Arms Reduction Treaty (START I), first proposed in the early 1980s by President Ronald Reagan and finally signed in July 1991, required the United States and the Soviet Union to reduce their deployed strategic arsenals to 1,600 delivery vehicles, carrying no more than 6,000 warheads as counted using the agreement’s rules. The agreement required the destruction of excess delivery vehicles which was verified using an intrusive verification regime that involved on-site inspections, the regular exchange of information, including telemetry, and the use of national technical means (i.e., satellites). The agreement’s entry into force was delayed for several years because of the collapse of the Soviet Union and ensuing efforts to denuclearize Ukraine, Kazakhstan, and Belarus by returning their nuclear weapons to Russia and making them parties to the nuclear Nonproliferation Treaty (NPT) and START I agreements. START I reductions were completed in December 2001 and the treaty expired on Dec. 5, 2009.

START II

In June 1992, Presidents George H. W. Bush and Boris Yeltsin agreed to pursue a follow-on accord to START I. START II, signed in January 1993, called for reducing deployed strategic arsenals to 3,000-3,500 warheads and banned the deployment of destabilizing multiple-warhead land-based missiles. START II would have counted warheads in roughly the same fashion as START I and, also like its predecessor, would have required the destruction of delivery vehicles but not warheads. The agreement's original implementation deadline was January 2003, ten years after signature, but a 1997 protocol moved this deadline to December 2007 because of the extended delay in ratification. Both the Senate and the Duma approved START II, but the treaty did not take effect because the Senate did not ratify the 1997 protocol and several ABM Treaty amendments, whose passage the Duma established as a condition for START II’s entry into force. START II was effectively shelved as a result of the 2002 U.S. withdrawal from the ABM treaty.

START III Framework

In March 1997, Presidents Bill Clinton and Boris Yeltsin agreed to a framework for START III negotiations that included a reduction in deployed strategic warheads to 2,000-2,500. Significantly, in addition to requiring the destruction of delivery vehicles, START III negotiations were to address “the destruction of strategic nuclear warheads…to promote the irreversibility of deep reductions including prevention of a rapid increase in the number of warheads.” Negotiations were supposed to begin after START II entered into force, which never happened.

SORT (Moscow Treaty)

On May 24, 2002, Presidents George W. Bush and Vladimir Putin signed the Strategic Offensive Reductions Treaty (SORT or Moscow Treaty) under which the United States and Russia reduced their strategic arsenals to 1,700-2,200 warheads each. The warhead limit took effect and expired on the same day, Dec. 31, 2012. Although the two sides did not agree on specific counting rules, the Bush administration asserted that the United States would reduce only warheads deployed on strategic delivery vehicles in active service, i.e., “operationally deployed” warheads, and would not count warheads removed from service and placed in storage or warheads on delivery vehicles undergoing overhaul or repair. The agreement’s limits are similar to those envisioned for START III, but the treaty did not require the destruction of delivery vehicles, as START I and II did, or the destruction of warheads, as had been envisioned for START III. The treaty was approved by the Senate and Duma and entered into force on June 1, 2003. SORT was replaced by New START on February 5, 2011.

New START

On April 8, 2010, the United States and Russia signed New START, a legally binding, verifiable agreement that limits each side to 1,550 strategic nuclear warheads deployed on 700 strategic delivery systems (ICBMs, SLBMs and heavy bombers), and limits deployed and nondeployed launchers to 800. The treaty-accountable warhead limit is 30 percent lower than the 2,200 upper limit of SORT, and the delivery vehicle limit is 50 percent lower than the 1,600 allowed in START I. The treaty has a verification regime that combines elements of START I with new elements tailored to New START. Measures under the treaty include on-site inspections and exhibitions, data exchanges and notifications related to strategic offensive arms and facilities covered by the treaty, and provisions to facilitate the use of national technical means for treaty monitoring. The treaty also provides for the continued exchange of telemetry (missile flight-test data on up to five tests per year) and does not meaningfully limit missile defenses or long-range conventional strike capabilities. The U.S. Senate approved New START on Dec. 22, 2010. The approval process of the Russian parliament (passage by both the State Duma and Federation Council) was completed Jan. 26, 2011. The treaty entered into force on Feb. 5, 2011 and will expire in 2021, though both parties may agree to extend the treaty for a period of up to five years. Both parties met the treaty’s central limits by the Feb. 4, 2018 deadline for implementation.

Strategic Nuclear Arms Control Agreements

Strategic Nuclear Arms Control Agreements
 SALT  I SALT IIINF TreatySTART ISTART IISTART IIISORT

New START

StatusExpiredNever Entered Into ForceIn Force*ExpiredNever Entered Into ForceNever NegotiatedReplaced by New STARTIn Force
Deployed Warhead LimitN/AN/AN/A6,0003,000-3,5002,000-2,5001,700-2,2001,550
Deployed Delivery Vehicle LimitUS: 1,710 ICBMs & SLBMs
USSR: 2,347
2,250Prohibits ground-based missiles of 500-5,500 km range1,600N/AN/AN/A700
Date SignedMay 26, 1972June 18, 1979Dec. 8, 1987July 31, 1991Jan. 3, 1993N/AMay 24, 2002April 8, 2010
Date Ratifed, U.S.Aug. 3, 1972N/AMay 28, 1988Oct. 1, 1992Jan. 26, 1996N/AMarch 6, 2003Dec. 22, 2010
Ratification Vote, U.S.88-2N/A93-693-687-4N/A95-071-26
Date Entered Into ForceOct. 3, 1972N/AJune 1, 1988Dec. 5, 1994N/AN/AJune 1, 2003Feb. 5, 2011
Implementation DeadlineN/AN/AJune 1, 1991Dec. 5, 2001N/AN/AN/AFeb. 5, 2018
Expiration DateOct. 3, 1977N/Aunlimited durationDec. 5, 2009N/AN/AFeb. 5, 2011Feb. 5, 2021**

*On Feb. 2, 2019, both the United States and Russia announced they were suspending their obligations to the treaty.

**New START allows for the option to extend the treaty beyond 2021 for a period of up to five years.

Nonstrategic Nuclear Arms Control Measures

Intermediate-Range Nuclear Forces (INF) Treaty

Signed Dec. 8, 1987, the INF Treaty required the United States and the Soviet Union to verifiably eliminate all ground-launched ballistic and cruise missiles with ranges between 500 and 5,500 kilometers. Distinguished by its unprecedented, intrusive inspection regime, including on-site inspections, the INF Treaty laid the groundwork for verification of the subsequent START I. The INF Treaty entered into force June 1, 1988, and the two sides completed their reductions by June 1, 1991, destroying a total of 2,692 missiles. The agreement was multilateralized after the breakup of the Soviet Union, and current active participants in the agreement include the United States, Russia, Belarus, Kazakhstan, and Ukraine. Turkmenistan and Uzbekistan are also parties to the agreement but do not participate in treaty meetings or on-site inspections. The ban on intermediate-range missiles is of unlimited duration.

Both the United States and Russia have raised concerns about the other side’s compliance with the INF Treaty. The United States first publicly charged Russia with developing and testing a ground-launched cruise with a range that meets the INF Treaty definition of a ground-launched cruise missile with a range capability of 500 km to 5,500 km in 2014.

Russia denies that it is breaching the agreement and has raised its own concerns about Washington’s compliance. Moscow is charging that the United States is placing a missile defense launch system in Europe that can also be used to fire cruise missiles, using targets for missile defense tests with similar characteristics to INF Treaty-prohibited intermediate-range missiles, and is making armed drones that are equivalent to ground-launched cruise missiles. On Oct. 20, 2018 President Donald Trump announced his intention to “terminate” the agreement citing Russian noncompliance and concerns about China’s missiles, and on Dec. 4, Secretary of State Mike Pompeo declared Russia in “material breach” of the treaty. The Trump administration provided official notice to the other treaty states-parties on Feb. 2, that it would both suspend its obligations to the treaty and withdraw from the agreement in six months—per the treaty's terms—and "terminate" the agreement. The administration has stated that it may reverse the withdrawal if Russia returns to compliance by eliminating its ground-launched 9M729 missile, which the United States alleges is the noncompliant missile which can fly beyond the 500-kilometer range limit set by the treaty. 

Presidential Nuclear Initiatives 

On Sept. 27, 1991, President George H. W. Bush announced that the United States would remove almost all U.S. tactical (nonstrategic) nuclear forces from deployment so that Russia could undertake similar actions, reducing the risk of nuclear proliferation as the Soviet Union dissolved. Specifically, Bush said the United States would eliminate all its nuclear artillery shells and short-range nuclear ballistic missile warheads and remove all nonstrategic nuclear warheads from surface ships, attack submarines, and land-based naval aircraft. Soviet leader Mikhail Gorbachev reciprocated on Oct. 5, pledging to eliminate all nuclear artillery munitions, nuclear warheads for tactical missiles, and nuclear landmines. He also pledged to withdraw all Soviet tactical naval nuclear weapons from deployment. Under these initiatives, the United States and Russia reduced their deployed nonstrategic stockpiles by an estimated 5,000 and 13,000 warheads, respectively. However, significant questions remain about Russian implementation of its pledges, and there is considerable uncertainty about the current state of Russia’s tactical nuclear forces. The Defense Department estimates that Russia possess roughly 2,000 non-strategic nuclear weapons and the numbers are expanding. The United States maintains several hundred nonstrategic B61 gravity bombs for delivery by short-range fighter aircraft. 

Strategic Arms Control and Policy

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