Iran Says Russia's Nuclear Plan Is 'Not Sufficient'

By DAVID E. SANGER and ELAINE SCIOLINO

Published: January 27, 2006

WASHINGTON, Jan. 27 — President Bush and the Chinese government both declared their full support on Thursday for a Russian proposal to allow Iran to operate civilian nuclear facilities as long as Russia and international nuclear inspectors are in full control of the fuel.

Mr. Bush's explicit public endorsement puts all of the major powers on record supporting the proposal, even as most acknowledge that it is a significant concession to Iran and runs the risk that the country will drag out the negotiations while continuing to produce nuclear material. Yet officials say they believe it is the best face-saving strategy to pursue a negotiated settlement with Iran.

But just as the United States and China were stepping forward on the proposal, Iran took a step back.

Its top nuclear negotiator, Ali Larijani, who called the Russian plan "positive" after a meeting in Moscow Wednesday, on Friday said it was "not sufficient for Iran's nuclear technology," according to Iran's state-run news agency.

"It should be considered along with other proposed schemes, given that it cannot be dismissed as negative," Mr. Larijani said in Tehran, after a trip that included consultations in Beijing as well as Moscow. "We believe the proposal can be revised to be more complete."

Since the Russian proposal was made last month, Tehran has given sharply contradictory signals concerning it. Several senior officials have said that while they could envision a Russian uranium enrichment arrangement, they would insist on enriching uranium within Iran as well.

It is unclear whether the changes in course reflect a struggle within Iran's leadership, as some American officials suspect, or are a bargaining ploy — or are simply meant to buy time as President Bush and European leaders struggle to win widespread backing for United Nations sanctions.

Further meetings between Iran and Russia are schedule for February, after the emergency meeting of the International Atomic Energy Agency convened for Feb. 2 at the request of European nations to consider referring Iran to the United Nations.

European and American officials familiar with the details of the offer that Russia made to Iran say that Iran would continue to be allowed to operate its nuclear plant at Isfahan, which converts raw uranium into a form that is ready to be enriched. That is a step that both Europe and the United States said last year that they could not allow — and that was explicitly barred under the agreement between Iran and Europe in late 2004, because Iran could divert the uranium to secret enrichment facilities. Iran began operating the Isfahan plant again in August.

Mr. Bush did not discuss the details of the Russian offer. But American, European and Russian officials, who like others discussing the issue spoke on the condition of anonymity because they did not want to be seen as interfering in the negotiations, said the offer would allow Iran to continue operations at the plant that turns yellowcake, a concentrated form of uranium ore, into uranium hexafluoride, a toxic material that centrifuges spin into fuel for reactors or bombs.

Critics of that concession say that it could send a signal to Iran that it no longer has to comply with all provisions of its November 2004 agreement with Europe.

"A red line was crossed" when Iran began producing the uranium last fall, said David Albright, president of the Institute for Science and International Security, a nonpartisan research group that follows developments in Iran. "The Iranians got away with reopening the conversion facility, and now people have accepted it's never going to be shut again and have taken it off the table."

Mr. Bush made his statement embracing the Russian idea at a news conference on Thursday. He said, "The Iranians have said, 'We want a weapon.' "

In fact, Iran has denied that it is pursuing a weapon, and in the afternoon, the White House spokesman, Scott McClellan, acknowledged that Mr. Bush had misspoken.

"He was referring to their behavior," Mr. McClellan said by telephone later. "Our concern is their intention is to develop a nuclear weapon under the guise of a civilian program."

Nonetheless, Mr. Bush's slip may cement the perception among some members of the board of the International Atomic Energy Agency that he has decided, at least in his own mind, that Iran is intent on building a weapon as fast as it can, a situation he has said repeatedly that he will not tolerate. Mr. Bush gave no hint on Thursday that he was thinking of military action, instead saying that "we are working hard to continue the diplomacy necessary to send a focused message to the Iranian government, and that is: 'Your desires for a weapon are unacceptable.' "

Mr. Bush's statement came at a moment of heightened concern in Vienna, home of the agency, that if its board votes next week to send Iran's case to the United Nations Security Council, Iran might make good on its threat to limit cooperation with inspectors and begin full scale enrichment of uranium. North Korea threw out inspectors three years ago, and one senior American official said recently that "the Iranians have looked closely at that model."

The Russian proposal lays out a complicated plan in which Iran would supply the uranium hexafluoride from Isfahan, shipping it to Russia for enrichment. Once enriched, the uranium would be shipped back to Iran's nuclear plant in Bushehr, which is being built by the Russians.

But huge questions remain, including the scale of the program, the degree of involvement of Iranian engineers and program's commercial viability. Moreover, just working out a deal this complex would take months or longer, experts say, at a time the administration fears the Iranians could surge ahead.

In interviews, Russian and European officials said they believed the arrangements, while face-saving, made no economic or technological sense for Iran. Iran would have to pay for the enrichment, but its own scientists would not be allowed to work on the site.

Moreover, there are technical problems. Russian officials, who spoke on the condition of anonymity because they were in the middle of negotiations, said that the uranium gas produced at Isfahan was of inferior quality to what was produced in Russia. As a result, the Russians have no interest, they say, in buying any of its for their own use.

In an interview in Vienna on Wednesday, Gregory L. Schulte, the American ambassador to the atomic agency, said, "There are those who would argue that conversion is not proliferation-significant because it does not produce weapons grade material, but from our perspective, conversion is another step forward to acquire enrichment capability. It has no economic purpose."

While China favored the Russian proposal, it also firmly opposed the use of sanctions. That comes as a disappointment to Washington, which this week sent a top official to persuade China's leaders that they should do far more.

During a visit to Beijing by Ali Larijani, Iran's top nuclear negotiator, Kong Quan, China's Foreign Ministry spokesman, praised Moscow's offer to enrich Iran's uranium in Russia and made clear that China will not support sanctions. "We think the Russian proposal is a good attempt to break this stalemate," Mr. Kong said, adding, "We oppose impulsively using sanctions or threats of sanctions to solve problems."

The Bush administration has not allowed its stated opposition to Iran's uranium conversion at Isfahan to block the Russian offer. "This is dangerous, but it is minimally acceptable as long as they are not enriching," said Mark Fitzpatrick, a senior fellow at the International Institute for Strategic Studies in London. "The Russian proposal is the last best chance of resolving this without an escalation."

U.S. Comments on India Clarified

India responded testily yesterday to American suggestions of a quid pro quo in its blossoming relations with the United States, with the Indian foreign secretary calling in the United States ambassador over his reported remarks about how India should vote next week on whether to refer the case of Iran's nuclear ambitions to the United Nations Security Council.

David C. Mulford, the American ambassador to India, had been quoted by the Press Trust of India news agency as saying that if India did not vote to refer Iran to the Security Council, it would be "devastating" to its chances of securing the nuclear deal with the United States.

The American Embassy later said that the comments had been taken "out of context" and released a full transcript. In it, Mr. Mulford first said that India would be expected to vote "based on India's judgment of its own national interest."

He went on to say, "that if they decide that they don't want to vote for this, our view is that the effect on members of Congress with regard to this civil nuclear initiative will be devastating."

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