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Suitcase Nukes": A Reassessment
September 23, 2002

Rep. Curt Weldon (R-Penn) holds mock-up of a hypothetical "suitcase" nuclear bomb during a hearing on Russian espionage chaired by Rep. Dan Burton (R-Indiana), 24 January 2000.
Attention to portable nuclear devices (often referred to as "suitcase nukes") peaked in 1997-early 1998 following well-publicized allegations by the late governor of Krasnoyarsk Krai and former Russian Security Council Secretary, General (Ret.) Alexander Lebed, that an unknown number of these weapons (possibly as many as several dozen) could not be accounted for. These devices represent probably the greatest threat if they end up in the hands of terrorists due to the combination of small size and full-scale nuclear explosion effects. Interception of "suitcase bombs" is difficult along land borders and practically impossible along maritime borders. At the same time, the political, psychological, and economic effects of a blast from a portable nuclear weapon would be far greater than, for example, those of a "dirty bomb."
The first and only reliable line of defense against the acquisition or use of "suitcase nuclear weapons" by terrorists lies in the countries that possess such devices or have the capability to produce them. Lebed's 1997 statements are particularly unnerving because the early 1990s (when, according to him, a number of portable nuclear devices were lost) represented the time of greatest risk with regard to nuclear weapons security in Russia. Governmental institutions were radically weakened, and a dramatic drop in the standard of living made individuals with access to these weapons extremely vulnerable to the temptation of easy illegal profit. Official denials, including the denials that such weapons even existed, are not a sufficient reason for complacency.
This paper revisits open-source information about suitcase nukes to assess the level of threat stemming from the possibility that a number of them could have ended in the hands of terrorists or states that support them. It seeks to achieve that task by concentrating on the following objectives:

reassess information from publicly available sources about portable nuclear devices and try to determine, in particular, whether these weapons actually existed;
analyze the scenarios of their loss that were offered by the special commission charged with the accounting for portable nuclear devices in the mid-1990s; and
based on these scenarios, assess the probability that portable nuclear devices could have fallen into the hands of international terrorist organizations or states that support them, as well as the probability that such devices could be used for terrorist purposes.

The paper reaches two main conclusions:
First, the probability that any portable nuclear devices were lost prior to or after the breakup of the Soviet Union appears low; the scenarios of loss offered by the special commission in 1996 are actually the least plausible among other possible scenarios. This does not mean that the threat does not exist, but rather that at this moment, it is probably not the most immediate threat to the home security of the United States or to U.S. armed forces abroad.
Second, even if any devices were lost, their effectiveness should be very low or maybe even non-existent, especially if the loss occurred during the period of the greatest risk, in the early 1990s. Without scheduled maintenance, these devices apparently can produce only minimal yield and eventually possibly no yield at all, and can only serve as a source of small amounts of weapons-grade fissile materials.
That being said, open-source information has limited usefulness and can only yield probabilistic analysis instead of definitive answers. Consequently, it is necessary to continue efforts aimed at acquiring better and more reliable information about the status of Soviet/Russian portable nuclear devices, as well as about the parameters of threat they might pose in the hands of terrorists.