Understanding Small Quantities Protocol (SQP) Safeguards: History, Obligations, and Shortcomings

1. IAEA Small Quantities Protocol (SQP) Safeguards Policy Course – Monterey Institute of International Studies • June 2012 Bill Moore

2. What is the Small Quantities Protocol? • The Small Quantities Protocol (SQP) allows a NNWS that declares a lack of significant nuclear activity to hold in abeyance the implementation of most safeguards measures provided for in Part II of INFCIRC/153 • A state is eligible for the SQP if it holds less than the amount of nuclear material that could be exempted from safeguards under Article 37 of INFCIRC/153 and no nuclear facilities • The SQP is an addendum to a states Comprehensive Safeguards Agreement (CSA)

3. Motivations for development of the SQP (1971 - 1974) • The purpose of IAEA safeguards was verification of declared nuclear material in declared facilities • Many NNWS that ratified the NPT had no nuclear material and no nuclear activities • Limited budget and manpower within the IAEA required the development of a system to prioritize needs and reduce redundancy • Incentivize more States to join NPT by making the conclusion of a CSA less burdensome

4. History of the SQP • 1968 - Nonproliferation Treaty (NPT) negotiated and ratified • Article III requires NNWS to enter into a safeguards agreement with the IAEA • 1971 - Model Safeguards Agreement approved by IAEA Board of Governors (INFCIRC/153) • The basis for negotiating Comprehensive Safeguards Agreements (CSA) between IAEA and NNWS

5. History of the SQP (cont.) • 1974 – “The Standard Text of Safeguards Agreements in Connection with the Treaty on the Non-Proliferation of Nuclear Weapons” (GOV/INF/276) was agreed upon by the BOG • A listing of changes that could be made to standard INFCIRC/153 text. • The major substantive change was for NNWS that declare no “significant nuclear activities”; they could adopt the Small Quantities Protocol (GOV/INF/276 Annex B)

6. History of the SQP (cont.) • 1991 – Discovery of Iraq’s clandestine nuclear weapons program drives IAEA towards adopting a strengthened safeguards regime • 1997 – IAEA adopts the Model Additional Protocol (AP) INFCIRC/540 • 2005 IAEA adopts Modified Small Quantities Protocol (GOV/INF/276/Mod.1)

7. What are the safeguards obligations for an SQP State? • Report nuclear material import / export • Provide design information for any existing nuclear facility • Provide notification to IAEA 6 months in advance of introducing nuclear material into a new facility • All provisions of Part II of CSA held in abeyance except articles 32, 33, 38, 41 and 90

8. What are the shortcomings to the SQP? • The initial declaration that a State might provide establishing its eligibility for an SQP may now be 25 years old • IAEA has no ability to verify that this initial declaration, if it exists, was or is still is true. • IAEA has no right to conduct inspections in SQP States * • IAEA has no easy mechanism to request further information

9. The Modified Small Quantities Protocol • GOV/INF/276/Mod.1 • Approved by BOG September, 2005 • Purpose is to address the identified gaps in the original text • BOG agrees to only approve modified SQP going forward

10. The Modified Small Quantities Protocol, what’s different? • Provide an initial nuclear materials declaration • Annual reports required • Report nuclear material import / export • Including pre-34c material • Provide design information for any existing nuclear facility • Provide notification to IAEA as soon as a decision is made to build a nuclear facility • As a result of a notification to the IAEA of a decision to build a nuclear facility, Modified SQP immediately ceases to apply • Holds in abeyance provisions of Part II of the CSA, with the exception of Articles 32-38, 40, 48, 49, 59, 61, 67, 68, 70, 72-76, 82, 84-90, 94 and 95

11. A Reminder! • The increased authority of the IAEA to conduct safeguards inspections in Modified SQP States STILL relies on the initial declaration. If the facility and/or material is not declared in the initial declaration, the IAEA has no authority to conduct inspections • EXCEPTION: IAEA holds the ability to conduct a special inspection (INFCIRC/153 Part 1, Article 18)

12. SQP States (As of 2012) • Barbados • Belize • Bhutan • Bolivia • Brunei Darussalam • Cambodia • Cameroon • Dominica • Ethiopia • Grenada • Guyana • Lao P.D.R • Maldives • Myanmar • Nauru • Nepal • Oman • Papa New Guinea • St. Kitts & Nevis • Saint Lucia • St. V. & The Grandines • Samoa • Saudi Arabia • Sierra Leone • Solomon Islands • Sudan • Suriname • Tonga • Trinidad & Tobago • Tuvulu • Yemen

13. Modified SQP States (As of 2012) • Antigua and Barbados • Azerbaijan • The Bahamas • Bahrain • Benin • Burkina Fasso • Burundi • Cape Verde • Central African Republic • Chad • Comoros • Congo • Costa Rica • Croatia • Djibouti • Dominican Republic • Ecuador • El Salvador • Gambia • Guatemala • Guinea • Holy See • Honduras • Iceland • Kenya • Lebanon • Lesotho • Madagascar • Malawi • Mali • Mauritius • Monaco • Montenegro • Mozambique • Nicaragua • Palau • Panama • Qatar • Republic of Moldova • Rwanda • San Marino • Senegal • Seychelles • Singapore • Swaziland • Tajikistan • The F.Y.R. of Macedonia • Timor-Leste • Togo • Uganda • United Rep. of Tanzania • Vanuatu • Zimbabwe

14. Modified SQP States with an Additional Protocol (As of 2012) • Antigua and Barbados • Azerbaijan • The Bahamas • Bahrain • Benin • Burkina Fasso • Burundi • Cape Verde • Central African Republic • Chad • Comoros • Congo • Costa Rica • Croatia • Djibouti • Dominican Republic • Ecuador • El Salvador • Gambia • Guatemala • Guinea • Holy See • Honduras • Iceland • Kenya • Lebanon • Lesotho • Madagascar • Malawi • Mali • Mauritius • Monaco • Montenegro • Mozambique • Nicaragua • Palau • Panama • Qatar • Republic of Moldova • Rwanda • San Marino • Senegal • Seychelles • Singapore • Swaziland • Tajikistan • The F.Y.R. of Macedonia • Timor-Leste • Togo • Uganda • United Rep. of Tanzania • Vanuatu • Zimbabwe

15. IAEA Outreach to SQP States • Since the adoption by the BOG in 2005 of the Modified SQP, the IAEA has exchanged letters with SQP States and held workshops to encourage engagement • As of 2012, 53 of 84 SQP NNWS have adopted the modified text

16. QUESTIONS??