Arms Control by Committee: Managing Negotiations with the Russians

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This book is essentially a series of case histories of U.S.-Soviet nuclear arms control negotiations, as seen from the American side. It describes the processes of governmental decisionmaking for arms control in Washington, D.C., and the techniques for joint U.S.-Soviet decisionmaking at the negotiating table. As general counsel of the U.S. Arms Control and Disarmament Agency and member of U.S. delegations to disarmament conferences for eight years, the author was in a unique position to assess the difficulties ...
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Overview

This book is essentially a series of case histories of U.S.-Soviet nuclear arms control negotiations, as seen from the American side. It describes the processes of governmental decisionmaking for arms control in Washington, D.C., and the techniques for joint U.S.-Soviet decisionmaking at the negotiating table. As general counsel of the U.S. Arms Control and Disarmament Agency and member of U.S. delegations to disarmament conferences for eight years, the author was in a unique position to assess the difficulties of fashioning an arms control treaty that could pass muster within the executive branch of the U.S. government, be approved by U.S. allies, be successfully negotiated with the Soviets, and then win the approval of the U.S. Senate. This process will be even more complex now that the United States will face at least four nuclear powers from the former U.S.S.R. The book has three purposes. The first is to add to the recorded history of the following negotiations: the Limited Test Ban Treaty of 1963, the Non-Proliferation Treaty of 1968, the ABM Treaty of 1972 and its companion SALT Interim Agreements, and the 1987 INF Treaty. The author asks in each case, What did the president and his assistants do or fail to do to negotiate a successful agreement? The second purpose is to use the case book approach, common in law schools and business schools, as a teaching device for those who wish to learn how the American government made decisions about arms control negotiations, how U.S.-Soviet negotiators reached decisions, and what the results of the decisions have been. The book's third purpose is to generalize about what works and what does not work in the complex world of arms control negotiations, including information on the impact of negotiating committees and comparisons of the process for negotiating arms control treaties with that for achieving arms limits through action and reaction, without written agreement. The concluding chapter looks to the future: W
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Table of Contents

Abbreviations
Introduction 1
1 Questions About the Negotiations 5
2 The Limited Test Ban Treaty and Two Missed Opportunities for a Comprehensive Ban 18
3 The Threshold Test Ban Treaty and Another Try at a Comprehensive Ban 49
4 The NPT: Banning Transfer of Nuclear Weapons Takes Two Decades 59
5 The NPT Finally Brings Widespread International Safeguards on Reactors 83
6 SALT I: The ABM Treaty and an Opportunity Lost to Ban MIRVs 106
7 SALT II Misses an Opportunity to Move On from SALT I 132
8 The INF Treaty: Negotiating from a Position of Strength? 142
9 In Washington, D.C.: The Decisionmaking Process 168
10 At the Table: The Negotiating Process 200
11 Too Many Cooks? The Impact of the Negotiating Committees 214
12 "Arms Control Without Agreements" and the CFE Treaty 235
13 Will the Process Change with the End of the Cold War? 255
Notes 271
Sources 315
Index 335
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