Near the Cold War’s end, leaders in Washington and Moscow made reciprocal unilateral pledges to substantially limit and reduce their nuclear weaponry, most notably their tactical or “battlefield” nuclear weapons, such as nuclear artillery shells. President George H.W. Bush initiated these commitments, collectively known as the Presidential Nuclear Initiatives (PNIs), in September 1991 in recognition of the break up of the Eastern bloc and out of concern for the Kremlin’s ability to maintain control of its vast nuclear arsenal as political changes swept the Soviet Union. By pledging to end foreign deployments of entire categories of U.S. tactical nuclear weapons, Bush hoped that leaders in Moscow would follow suit; and they did, at least in part. All Soviet nuclear weapons were reportedly successfully consolidated on Russian soil. Still, Washington alleges Moscow has not yet fulfilled all of its PNI destruction commitments. Meanwhile, Russia opposes the continued stationing of U.S. tactical nuclear gravity bombs in Europe, which the PNIs did not cover. Despite lingering concerns about each other’s tactical nuclear weapons, the two sides have not negotiated further reductions or transparency measures for these arms since the early 1990s.
U.S. Presidential Nuclear Initiatives:
On Sept. 27, 1991, Bush announced a raft of unilateral initiatives to limit and reduce the U.S. tactical nuclear weapons arsenal. Specifically, he pledged to:
- withdraw to the United States all ground-launched short-range weapons deployed overseas and destroy them along with existing U.S. stockpiles of the same weapons; and
- cease deployment of tactical nuclear weapons on surface ships, attack submarines, and land-based naval aircraft during “normal circumstances.” Implicitly, the United States reserved the right to redeploy these arms in a crisis.
Soviet/Russian Presidential Nuclear Initiatives:
On Oct. 5, 1991, Soviet President Mikhail Gorbachev responded to Bush’s speech with reciprocal Soviet measures. Specifically, Gorbachev committed to:
- eliminate all nuclear artillery munitions, nuclear warheads for tactical missiles, and nuclear mines;
- remove all tactical nuclear weapons from surface ships and multipurpose submarines. These weapons would be stored in central storage sites along with all nuclear arms assigned to land-based naval aircraft; and
- separate nuclear warheads from air defense missiles and put the warheads in central storage. A “portion” would be destroyed.
On Jan. 29, 1992, Russian President Boris Yeltsin reaffirmed Gorbachev’s commitments and expanded on them in response to a second round of unilateral U.S. nuclear weapons cutbacks focused on strategic forces. (Following the Soviet Union’s Dec. 25, 1991 collapse, Russia assumed responsibility for the Soviet Union’s nuclear complex and arms control commitments.) Yeltsin said Russia would:
- eliminate a third of its sea-based tactical nuclear weapons and half of its ground-to-air nuclear missile warheads; and
- halve its airborne tactical nuclear weapons stockpile. Pending reciprocal U.S. action, the other half of this stockpile would be taken out of service and placed in central storage depots.
A precise accounting of U.S. and Soviet/Russian fulfillment of their tactical nuclear weapons PNIs is difficult because of ambiguity, then and now, surrounding the composition, size, and location of these arms. By 1991, the United States had nearly 5,000 tactical nuclear weapons deployed overseas, most of which were assigned to NATO. Estimates on the size of the Soviet tactical nuclear arsenal at that same time ranged widely from 12,000 to nearly 21,700 weapons.
The United States completed its proposed reductions and withdrawals of deployed tactical nuclear weapons in 1992. The elimination process was finished in 2003.
As a result of the PNIs, the U.S. withdrew and destroyed around 2,000 ground-launched nuclear artillery shells and short-range ballistic missiles, all TNWs on navy surface ships and attack submarines, and on land-based naval aircraft, destroyed all nuclear depth bombs, de-alerted strategic bombers, and cancelled planned nuclear systems. By the mid-1990s, the stockpile of TNWs fell to below 1,000 warheads. Between 1990 and the end of 1994 (when the START Treaty entered into force), the U.S. nuclear stockpile of active and inactive warheads fell from 21,392 to 10,979, a 50 percent reduction.
At a Dec. 21, 1991 conference at Alma-Ata, the Soviet Republics of Belarus, Kazakhstan, and Ukraine pledged to return all Soviet tactical nuclear weapons on their territories to Russia by July 1, 1992. All three states met their commitments despite the Soviet Union’s breakup four days after these pledges were made. Otherwise, Russia has released little information substantiating its PNI activities. At the May 2005 nuclear Nonproliferation Treaty Review Conference, Moscow announced that all Russian tactical nuclear weapons “are now deployed only within the national territory and are concentrated at central storage facilities of the Ministry of Defense.” In 2007, Colonel-General Vladimir Verkhovtsev remarked, “Russia particularly committed itself to removing tactical nuclear weapons from the ground forces completely. Those weapons were also cut by 50 percent in the Air Force, by 60 percent in missile defense troops and by 30 percent on nuclear submarines of the Russian Navy,” the general said.
Still, the Department of State has publicly questioned Russia’s PNI record. Specifically, it noted in June 2005, “Russia has failed to state publicly the status of the elimination of its nuclear artillery munitions, nuclear warheads for air defense missiles, nuclear mines, or nuclear weapons on land-based naval aviation.” These concerns were not expressed in the 2017 State Department Compliance Report, however.
As of 2016, the United States possesses about 500 B61 gravity bombs, 150-200 of which deployed in five European countries (Belgium, Germany, Italy, the Netherlands and Turkey). As of 2017, Russia retains approximately 1850 nonstrategic weapons, all of which are stored on Russian territory.
Since the PNIs, the United States and Russia have not agreed on additional measures to share information on or limit their tactical nuclear weapons. The two countries agreed in March 1997 to explore measures relating to tactical nuclear weapons, but nothing came of this effort. In June 2005, Russia conditioned additional talks on tactical nuclear weapons to the U.S. withdrawal of its remaining nuclear weapons in Europe. The United States has said these weapons are deployed as part of NATO policy and that a decision to withdraw them would need to be taken by all alliance members. In 2005, Congress passed legislation calling on the Bush administration to investigate measures to help Russia account for and secure its tactical arms and assess whether tactical nuclear reductions with Russia should be pursued.
In 2010, the Barack Obama administration stated that it was the goal of the United States to seek further reductions in all types of U.S. and Russian nuclear weapons—strategic and nonstrategic, deployed or nondeployed—following the conclusion of the 2010 New START talks. The 2010 NATO Strategic Concept states that the goal of the alliance is to "seek Russian agreement to increase transparency on its nuclear weapons in Europe and relocate these weapons away from the territory of NATO members." officials insist that the U.S. should first withdraw all of its tactical nuclear weapons to its national territory. In the 2010 Nuclear Posture Review, the Obama Administration announced a unilateral retirement of the Navy’s stockpile of nuclear-armed submarine launched cruise missiles (SLCMs).
In April 2010, then-Secretary of State Hillary Clinton stated that the U.S. could remove nuclear weapons from Europe in exchange for a reduction in the size of Russia’s nonstrategic nuclear weapons arsenal. In 2013, Obama gave a speech advocating for the U.S. to work with European allies and Russia to negotiate future reductions in nonstrategic nuclear weapons.
However, to date the United States and Russia have not commenced talks regarding additional cuts on nonstrategic weapons, and a range of arms control disputes threatens to continue to obstruct progress on the matter. Russia is unlikely to discuss cuts to its nonstrategic nuclear weapons arsenal until the United States removes nonstrategic nuclear forces from Europe and agrees to limitations of its ballistic missile defense program.
Karibu na mwisho wa Vita Baridi, viongozi katika Washington na Moscow alifanya ahadi ya pande zote mbili kupunguza na kupunguza silaha zao za nyuklia, hasa silaha zao za nyuklia za kijeshi au za " uwanja wa vita", kama vile makombora ya nyuklia. Rais George H.W. Bush alianzisha ahadi hizo, ambazo kwa pamoja zinajulikana kama Mpango wa Kimataifa wa Nyuklia wa Rais (PNI), mnamo Septemba 1991 kwa kutambua kuvunjika kwa Jumuiya ya Mashariki na kwa wasiwasi juu ya uwezo wa Kremlin kudumisha udhibiti wa silaha zake nyingi za nyuklia wakati mabadiliko ya kisiasa yalipiga Urusi. Kwa kuahidi kukomesha kupelekwa nje kwa makundi yote ya silaha za nyuklia za Marekani, Bush alitumaini kwamba viongozi wa Moscow wangefuata mfano wake, na walifanya hivyo, angalau kwa sehemu. Inaripotiwa kwamba silaha zote za nyuklia za Sovieti ziliwekwa kwa mafanikio kwenye udongo wa Urusi. Hata hivyo, Washington inadai Moscow bado haijatimiza ahadi zake zote za uharibifu wa PNI. Urusi inakataa kuendeleza kuweka mabomu ya nyuklia ya kivita ya Marekani huko Ulaya, ambayo PNI haikufunika. Licha ya wasiwasi wa kila mmoja kuhusu silaha za nyuklia za kijeshi, pande hizo mbili hazijajadili kupunguza zaidi au hatua za uwazi kwa silaha hizi tangu mwanzoni mwa miaka ya 1990. "Mwaka 1991 Bush alitangaza ""mfululizo wa mipango ya upande mmoja ya kupunguza na kupunguza silaha za nyuklia za kijeshi za Marekani.""" "Alichukua ahadi ya ""kuondoa silaha zote za masafa mafupi zilizotumiwa na nchi za nje na kuziharibu pamoja na hifadhi zilizopo za silaha hizo; na kuacha kupeleka silaha za nyuklia za kijeshi kwenye meli za juu, nyambizi za kushambulia, na ndege za nchi kavu wakati wa hali ya kawaida ya majini.""" "Mfano wa hatua za ""soviet"" za Urusi: Oktoba 5, 1991 Rais wa Sovieti Mikhail Gorbachev alijibu hotuba ya Bush na hatua za Sovieti za kuingilia." Gorbachev pia alitoa ahadi ya kuondoa silaha zote za nyuklia kutoka kwa meli za baharini na nyambizi. Silaha hizo zingehifadhiwa katika vituo vya kuhifadhi pamoja na silaha zote za nyuklia zilizowekwa kwa ndege za majini za nchi kavu; na - kugawanya vichwa vya nyuklia kutoka kwa makombora ya ulinzi wa hewa na kuweka vichwa vya nyuklia katika kuhifadhi kati. "Sehemu" ingeharibiwa. Mnamo Januari 29, 1992, Rais wa Urusi Boris Yeltsin alithibitisha tena ahadi za Gorbachev na kupanua juu yao katika kujibu mzunguko wa pili wa kupunguza silaha za nyuklia za Marekani zilizozingatia vikosi vya kimkakati. Baada ya kuanguka kwa Muungano wa Sovieti mnamo Desemba 25, 1991, Urusi ilichukua jukumu la majukumu ya Muungano wa Sovieti ya nyuklia na udhibiti wa silaha. Yeltsin alisema Urusi itaharibu theluthi moja ya silaha zake za nyuklia za kijeshi za baharini na nusu ya makombora yake ya nyuklia ya ardhi-hewa na kupunguza nusu ya silaha zake za nyuklia za kijeshi za angani. Kwa kutarajia hatua ya Marekani, nusu nyingine ya hifadhi hii itaondolewa katika huduma na kuwekwa katika maghala ya kuhifadhi ya kati. Uhakiki wa usahihi wa U.S. na Urusi kutimiza silaha zao za nyuklia za kijeshi ni ngumu kwa sababu ya utata, wakati huo na sasa, unaozunguka muundo, ukubwa, na eneo la silaha hizi. Kufikia mwaka 1991, Marekani ilikuwa na silaha za nyuklia karibu 5,000 zilizotumiwa katika nchi za kigeni, na nyingi kati ya hizo zilikuwa zimewekwa kwa ajili ya NATO. Takwimu za ukubwa wa silaha za nyuklia za kijeshi za Sovieti wakati huo zilikuwa kati ya 12,000 na 21,700. Marekani imekamilisha mapendekezo yake ya kupunguza na kuondoa silaha za nyuklia za kijeshi zilizotumika mnamo 1992. Utaratibu wa kuondoa ulikamilika mwaka 2003. Kwa sababu ya PNI, Marekani iliondoa na kuharibu karibu makombora 2,000 ya nyuklia ya ardhini na makombora ya muda mfupi, TNWs zote kwenye meli za juu za jeshi la wanamaji na nyambizi za mashambulizi, na ndege za majini za ardhi, kuharibu mabomu yote ya kina cha nyuklia, kuondoa mabomu ya kimkakati, na kufuta mifumo ya nyuklia iliyopangwa. Kuanzia mwaka wa 1990 hadi mwaka wa 2015, silaha za nyuklia za kimataifa zilikuwa chini ya 1,000 na silaha za nyuklia za kimataifa zilikuwa chini ya 1,000 na silaha za nyuklia za kimataifa zilikuwa chini ya 1,000 na silaha za nyuklia za kimataifa zilikuwa chini ya 1,000 na silaha za nyuklia. Tangu mwaka 1990 hadi mwaka 1994, wakati Mkataba wa START ulipoanza kutumika, silaha za nyuklia za Marekani zilipungua kutoka 21,392 hadi 10,979, kwa asilimia 50. Katika mkutano uliofanyika Desemba 21, 1991 huko Alma-Ata, Jamhuri za Kisovieti za Belarus, Kazakhstan, na Ukraine ziliahidi kurudisha silaha zote za nyuklia za kijeshi za Sovieti katika maeneo yao kwa Urusi kufikia Julai 1, 1992. Nchi zote tatu zilitimiza ahadi zao licha ya kuvunjika kwa Muungano wa Sovieti siku nne baada ya ahadi hizi kufanywa. Kwa upande mwingine, Urusi imetoa habari chache zinazounga mkono shughuli zake za PNI. "Mwezi Mei mwaka 2005 katika mkutano wa ukaguzi wa Mkataba wa kutokuenea kwa silaha za nyuklia, Urusi ilitangaza kuwa silaha zote za nyuklia za kijeshi za Urusi ""zimewekwa ndani ya eneo la kitaifa na zimekusanywa katika vituo vya kuhifadhi vya Wizara ya Ulinzi."" - Vladimir Verkhovtsov, Mkuu wa Kikosi cha Ulinzi wa Urusi." "Vifaa hivyo pia vimepunguzwa kwa asilimia 50 katika Jeshi la Anga, kwa asilimia 60 katika vikosi vya ulinzi wa makombora na kwa asilimia 30 kwenye nyambizi za nyuklia za Jeshi la Wanamaji la Urusi,"" alisema jenerali huyo." Hata hivyo, Wizara ya Mambo ya Nje imewashauri waandishi wa habari wa Marekani kuondoa taarifa za Urusi kuhusu PNI. "Kama ilivyotangazwa mnamo Juni 2005, ""Russia imeshindwa kueleza hadharani hali ya kuondolewa kwa makombora yake ya nyuklia, makombora ya nyuklia ya ulinzi wa anga, mabomu ya nyuklia, au silaha za nyuklia kwenye anga za majini za nchi kavu,"" ilisema ripoti ya idhini ya Idara ya Jimbo ya Marekani ya 2017."" Marekani ina mabomu 500 ya B61, ambayo kati ya 150 na 200 yamewekwa katika nchi tano za Ulaya (Ubelgiji, Ujerumani, Uholanzi, Uturuki). Tangu mwaka 2017, Urusi ina silaha zaidi ya 1,800 ambazo hazina maana ya kijeshi, na zote zimehifadhiwa katika eneo la Urusi. Tangu PNI, Marekani na Urusi hazikubaliana juu ya hatua za ziada za kushiriki habari juu ya au kupunguza silaha zao za nyuklia za kijeshi. Nchi hizo mbili zilikubaliana mwezi Machi mwaka 1997 kuchunguza hatua zinazohusiana na silaha za nyuklia za kijeshi, lakini hakuna kilichotokea kutokana na juhudi hizo. Mnamo Juni mwaka 2005, Urusi ilitoa masharti ya mazungumzo ya ziada juu ya silaha za nyuklia za kijeshi kwa Marekani kuondoa silaha zake za nyuklia zilizobaki Ulaya. Marekani imesema silaha hizo zimetumiwa kama sehemu ya sera ya NATO na kwamba uamuzi wa kuziondoa unahitaji kuchukuliwa na wanachama wote wa muungano huo. "Kama ilivyoelezwa katika taarifa ya awali ya bunge la Marekani, serikali ya Bush ilitoa ""maagizo ya kusaidia Urusi kuelezea na kulinda silaha zake za kijeshi na kutathmini ikiwa kupunguzwa kwa silaha za kijeshi na Urusi kunapaswa kufuatiliwa.""" "Mwaka 2010, utawala wa Barack Obama ulisema kuwa lengo la Marekani ni kutafuta kupunguzwa zaidi kwa aina zote za silaha za nyuklia za Marekani na Urusi, ""kiufundi na zisizo za kiufundi, zilizotumika au zisizotumika,"" kufuatia kumalizika kwa mazungumzo ya New START ya 2010." "Katika mpango wa 2010 wa NATO, lengo la muungano huo ni ""kutafuta makubaliano ya Urusi kuongeza uwazi juu ya silaha zake za nyuklia huko Ulaya na kuhamisha silaha hizi mbali na eneo la wanachama wa NATO.""" "Maafisa wa Marekani wanasema Marekani inapaswa ""kuondoa silaha zake zote za nyuklia katika eneo lake la kitaifa.""" Katika Mapitio ya Hali ya Nyuklia ya 2010, utawala wa Obama ulitangaza kustaafu kwa upande mmoja wa hifadhi ya Navy ya makombora ya nyuklia ya nyambizi (SLCMs). "Mwaka 2010, waziri wa mambo ya nje wa Marekani Hillary Clinton alisema kuwa Marekani inaweza kuondoa silaha za nyuklia kutoka Ulaya kwa kubadilishana na kupunguzwa kwa silaha za nyuklia za Urusi ""isizo za kimkakati.""" Obama alitoa hotuba ya kuunga mkono Marekani kufanya kazi na washirika wake wa Ulaya na Urusi kujadili upungufu wa silaha za nyuklia zisizo za kimkakati. Hata hivyo, hadi sasa Marekani na Urusi hazijaanza mazungumzo kuhusu kupunguzwa kwa silaha zisizo za kimkakati, na mzunguko wa mabishano ya kudhibiti silaha yanatishia kuendelea kuzuia maendeleo katika suala hilo. "Rusia haitajadili kupunguza silaha zake za nyuklia za ""si za kimkakati"" mpaka Marekani itapoondoa vikosi vya nyuklia vya ""si vya kimkakati"" kutoka Ulaya na kukubali mapungufu ya programu yake ya ulinzi wa makombora ya balistik."