Surrendering the Nuclear Arsenal: Was There a Single Decision-Maker?
An examination of Ukraine's nuclear disarmament reveals key milestones, starting with the Lisbon Protocol signed on May 23, 1992. On that date, the foreign ministers of Ukraine, Belarus, Kazakhstan, and Russia—alongside the U.S. Secretary of State—committed to reducing nuclear arms as successor states of the Soviet Union. This occurred despite opposition from Ukraine's parliament, the Verkhovna Rada. Under the START I treaty, Ukraine was required to cut 36% of its delivery systems and 42% of its warheads.
Earlier, on May 7, 1992, Ukrainian President Leonid Kravchuk sent a letter to U.S. President George H.W. Bush, reaffirming Ukraine's pledge to eliminate all nuclear weapons within seven years. After signing the protocol in Lisbon, Ukraine's Foreign Minister Anatoliy Zlenko declared:
“Ukraine will ensure the destruction of all nuclear weapons.”The Ukrainian Foreign Ministry defined the country's status as a state voluntarily renouncing nuclear arms, reserving that right solely for Russia.
However, in October 1991, the Verkhovna Rada had passed a law titled 'On Enterprises, Institutions, and Organizations of Union Subordination Located on the Territory of Ukraine,' which claimed all assets on Ukrainian soil as Ukrainian property. The Ukrainian Foreign Ministry stated it could not recognize Russia's special status regarding former Soviet treaties, property, or obligations. Russian Foreign Minister Andrei Kozyrev noted that Russia expected no nuclear warheads or delivery systems to remain on Ukrainian territory seven years after START I entered into force. He also emphasized that Russia, as the USSR's successor, was a party to the NPT and acted as its depositary.
Ratification and Subsequent Steps
In June 1993, the Ukrainian parliament rejected President Kravchuk's proposal to simultaneously ratify START I and join the NPT as a non-nuclear state. On November 18, 1993, parliament ratified START I and the Lisbon Protocol—but with conditions: all nuclear force assets would remain Ukrainian property, and administrative control would stay with Ukraine. At the same time, lawmakers refused to consider concurrent ratification of START I and NPT accession.
On January 14, 1994, the presidents of the United States, Russia, and Ukraine signed a Trilateral Statement in Moscow, effectively overriding Ukraine's ratification law. From March 1994 to June 1996, approximately 2,000 strategic nuclear munitions were moved from Ukraine to Russia. The final train, carrying roughly 200 nuclear warheads, left Ukrainian territory on June 1, 1996. In total, about 5,000 nuclear warheads—including tactical weapons—had been transferred to Russia since 1992. The 43rd Rocket Army was finally disbanded in August 2002, marking the completion of Ukraine's nuclear disarmament.
Ukraine's nuclear disarmament process stands as a pivotal chapter in the nation's history and its engagement with the global community. By giving up its nuclear arsenal and joining international treaties like the NPT, Ukraine adopted a non-nuclear policy that secured support from Western nations. This decision not only shaped regional security but also laid the groundwork for Ukraine's evolving relationships with NATO and the EU. Given today's geopolitical challenges, the significance of those choices remains highly relevant.
Understanding the complexities of Ukraine's nuclear disarmament sheds light on the broader implications of nuclear energy and safety worldwide. The legacy of such significant events as the Chernobyl disaster continues to influence global energy policies and perceptions of nuclear power. To explore how this pivotal incident reshaped energy discourse, read more about it here.