Iran and six world powers can reach a comprehensive nuclear deal by agreeing on Iran’s practical needs for enrichment, which are limited in the near term; as well as on technical modifications that could be made to the Arak reactor and turning the Fordo enrichment site into a research and development facility, former U.S. nuclear negotiator Robert Einhorn writes in a paper to be released by the Brookings Institution Monday.
“I think of the big issues, Arak is the easiest,” Einhorn told Al-Monitor in an interview last week. “Fordo is hard. But the hardest single issue is enrichment capacity.”
Einhorn, in his Brookings paper, “Preventing a Nuclear Armed-Iran: Requirements for a Comprehensive Iran Nuclear Deal,” released to Al-Monitor in advance, proposes that Iran and the P5+1 define the practical needs for Iran’s civil nuclear program. “Indeed, Iran’s actual need to produce enriched uranium for fueling reactors is quite limited, at least in the near and middle terms,” he writes. “Proposed modifications to Arak [would make it] better for producing medical isotopes,” he said.
Since reaching a breakthrough interim nuclear deal last November, Iran and six world powers have held two rounds of talks to try to negotiate a comprehensive nuclear deal by the July 20th expiration of the six month Joint Plan of Action.
“For the U.S. side,…to get sufficient support domestically and abroad, the U.S. position [on the size of Iran’s enrichment program] will be pretty demanding,” Einhorn, who served as the top State Department Iran non-proliferation advisor until last summer and is now a senior fellow at the Brookings Institution, said. “If Iran wants to find a way out, I propose the practical needs issue, [which] gives them a narrative that it could explain that it won on enrichment.”
On enrichment, extending Iran’s potential “breakout” time to between six and twelve months in a final deal “could be achieved by limiting centrifuges to between 2000 and 6000 first-generation IR-1 Iranian centrifuges (or significantly lower numbers if more advanced IR-2m centrifuges are included) and reducing enriched uranium stocks, especially at the near-20 percent level,” Einhorn writes in the Brookings “requirements” paper.
“Whatever numbers and combinations [of centrifuges and uranium stocks] are chosen, lengthening the breakout timeline to between six and twelve months would require substantial reductions in current Iranian centrifuge and stockpile levels,” he writes.
On the Arak IR-40, Einhorn proposes that, at a minimum, “changes should be made in the reactor’s design to greatly reduce its production of plutonium, especially to fuel it with enriched uranium and reduce its power level,” he writes. “The best solution would be to convert it to a light water-moderated research reactor, but other options requiring less extensive modification of the reactor are being explored.”
However, “if you can’t get the Iranians to switch [Arak] to a light water reactor, you could limit the power of the Arak reactor” from 40 MW to 10 MW, and instead of natural fuel, feed low enriched fuel into it, George Perkovich, a non-proliferation expert who serves as vice president and director of non-proliferation studies at the Carnegie Endowment for International Peace, told Al-Monitor. “Then [you could] control how long it stays in the reactor, which actually makes better medical isotopes…If you do all these things, it dramatically reduces the amount of plutonium in spent fuel,” to about 6kg a year, Perkovich said.
“That’s a serious impediment to a breakout,” Perkovich said. “That would be less than a bomb’s worth of plutonium produced [a year].”
In addition, Perkovich said, “Any proposed agreement says ‘no reprocessing.’ So the reduced plutonium concentration in spent fuel in a safeguarded reactor is a barrier added to the more fundamental barrier that Iran agrees to fore-go reprocessing and not have a facility for it.”
Can the parties reach a deal by July 20th? Or will they need an extension?
“I think both parties really do have a strong incentive to get it done in six months,” Einhorn said. “I don’t think either party has an incentive to extend it.”
However, he said, while “both sides genuinely want to reach agreement and want to create the perception that agreement is possible…[to] generate momentum, the reality is the substantive positions” are still far apart.
Iran Foreign Minister Mohammad Javad Zarif, speaking at the conclusion of the last round of comprehensive deal talks in Vienna this month, said reaching a final deal before the July 20 expiration of the six month Joint Plan of Action is possible.
“On four topics (Arak heavy water reactor, removal of sanctions, nuclear cooperation and uranium enrichment) we see signs of reaching an understanding which will protect the rights of the Iranian nation and move towards removal of problems,” Zarif told Iranian reporters in Vienna March 19.
In the next round of talks, to be held in Vienna April 7-9, Zarif said the issues on the agenda to be discussed are “Iran’s access to technology, trade market and banking resources as well as the manner of inspections (of Iran’s nuclear facilities) and the period of time needed for the final phase,” Zarif said, Fars News reported.
The “brinksmanship” in the weeks of negotiations leading up to July 20 interim deal deadline could be useful for narrowing gaps in positions.
“The problem as we get closer to July, is [if the parties need an extension,] then it will be [seen as] a crisis,” Perkovich said.
(Photo of former State Department Iran non-proliferation advisor Robert Einhorn by AFP/Getty Images.)