The Peopleís Republic of China (PRC) has stolen classified information on all of the United Statesí most advanced thermonuclear warheads, and several of the associated reentry vehicles. These thefts are the result of an intelligence collection program spanning two decades, and continuing to the present. The PRC intelligence collection program included espionage, review of unclassified publications, and extensive interactions with scientists from the Department of Energyís national weapons laboratories.
The stolen U.S. secrets have helped the PRC fabricate and successfully test modern strategic thermonuclear weapons. The stolen information includes classified information on seven U.S. thermonuclear warheads, including every currently deployed thermonuclear warhead in the U.S. intercontinental ballistic missile arsenal. Together, these include the W-88 Trident D-5 thermonuclear warhead, and the W-56 Minuteman II, the W-62 Minuteman III, the W-70 Lance, the W-76 Trident C-4, the W-78 Minuteman III Mark 12A, and the W-87 Peacekeeper thermonuclear warheads. The stolen information also includes classified design information for an enhanced radiation weapon (commonly known as the "neutron bomb"), which neither the United States, nor any other nation, has ever deployed.
In addition, in the mid-1990s the PRC stole from a U.S. national weapons laboratory classified U.S. thermonuclear weapons information that cannot be identified in this unclassified Report. Because this recent espionage case is currently under investigation and involves sensitive intelligence sources and methods, the Clinton administration has determined that further information cannot be made public.
The W-88 is a miniaturized, tapered thermonuclear warhead. It is the United Statesí most sophisticated strategic thermonuclear weapon. In the U.S. arsenal, the W-88 warhead is mated to the D-5 submarine-launched ballistic missile carried aboard the Trident nuclear submarine. The United States learned about the theft of the W-88 Trident D-5 warhead information, as well as about the theft of information regarding several other thermonuclear weapons, in 1995.
On two occasions, the PRC has stolen classified U.S. information about neutron warheads from a U.S. national weapons laboratory. The United States learned of these thefts of classified information on the neutron bomb in 1996 and in the late 1970s, when the first theft -- including design information on the W-70 warhead -- occurred. The W-70 warhead contains elements that may be used either as a strategic thermonuclear weapon, or as an enhanced radiation weapon ("neutron bomb"). The PRC subsequently tested the neutron bomb. The U.S. has never deployed a neutron weapon.
In addition, the Select Committee is aware of other PRC thefts of U.S. thermonuclear weapons-related secrets. The Clinton administration has determined that further information about these thefts cannot be publicly disclosed.
The Select Committee judges that the PRC will exploit elements of the stolen U.S. design information for the development of the PRCís new generation strategic thermonuclear warheads. Current PRC silo-based missiles were designed for large, multi-megaton thermonuclear warheads roughly equivalent to U.S. warheads of the late 1950s. The PRC plans to supplement these silo-based missiles with smaller, modern mobile missiles that require smaller warheads. The PRC has three mobile ICBM programs currently underway ñ two road-mobile and one submarine launched program ñ all of which will be able to strike the United States.
The first of these new Peopleís Liberation Army (PLA) mobile ICBMs, the DF-31, may be tested in 1999 and could be deployed as soon as 2002. The DF-31 ICBM and the PRCís other new generation mobile ICBMs will require smaller, more compact warheads. The stolen U.S. information on the W-70 or W-88 Trident D-5 will be useful for this purpose.
The PRC has the infrastructure and technical ability to use elements of the stolen U.S. warhead design information in the PLAís next generation of thermonuclear weapons. If the PRC attempted to deploy an exact replica of the U.S. W-88 Trident D-5 warhead, it would face considerable technical challenges. However, the PRC could build modern thermonuclear warheads based on stolen U.S. design information, including the stolen W-88 design information, using processes similar to those developed or available in a modern aerospace or precision guided munitions industry. The Select Committee judges that the PRC has such infrastructure and is capable of producing small thermonuclear warheads based on the stolen U.S. design information, including the stolen W-88 information.
The Select Committee judges that the PRC is likely to continue its work on advanced thermonuclear weapons based on the stolen U.S. design information. The PRC could begin serial production of advanced thermonuclear weapons based on stolen U.S. design information during the next decade in connection with the development of its new generation of intercontinental ballistic missiles.
The Select Committee judges that the PRCís acquisition of U.S. classified information regarding thermonuclear warhead designs from the Department of Energyís national weapons laboratories saved the PRC years of effort and resources, and helped the PRC in its efforts to fabricate and successfully test a new generation of thermonuclear warheads. The PRCís access to, and use of, classified U.S. information does not immediately alter the strategic balance between the U.S. and PRC. Once the PRCís small, mobile strategic ballistic missiles are deployed, however, they will be far more difficult to locate than the PRCís current silo-based missiles. This will make the PRCís strategic nuclear force more survivable. Small, modern nuclear warheads also enable the PRC to deploy multiple reentry vehicles (MRVs or MIRVs, multiple independently-targetable reentry vehicles) on its ICBMs should it choose to do so.
The PRCís collection of intelligence on smaller U.S. thermonuclear warheads began in the 1970s, when the PRC recognized its weaknesses in physics and the deteriorating status of its nuclear weapons programs. The Select Committee judges that the PRCís intelligence collection efforts to develop modern thermonuclear warheads are focused primarily on the U.S. Department of Energyís National Laboratories at:
* Los Alamos
* Lawrence Livermore
* Oak Ridge
* Sandia
The FBI has investigated a number of U.S. National Laboratory employees in connection with suspected espionage.
The Select Committee judges that the U.S. national weapons laboratories have been and are targeted by PRC espionage, and almost certainly remain penetrated by the PRC today.
The United States did not become fully aware of the magnitude of the counterintelligence problem at Department of Energy national weapons laboratories until 1995. A series of PRC nuclear weapons test explosions from 1992 to 1996 began a debate in the U.S. Government about whether the PRCís designs for its new generation of nuclear warheads were in fact based on stolen U.S. classified information. The apparent purpose of these PRC tests was to develop smaller, lighter thermonuclear warheads, with an increased yield-to-weight ratio. In 1995, a "walk-in" approached the Central Intelligence Agency outside the PRC and provided an official PRC document classified "Secret" that contained specific design information on the W-88 Trident D-5, and technical information on other thermonuclear warheads. The CIA later determined that the "walk-in" was directed by the PRC intelligence services. Nonetheless, CIA and other Intelligence Community analysts that reviewed the document concluded that it contained U.S. warhead design information.
The National Security Advisor was briefed on PRC thefts of classified U.S. thermonuclear warhead design information in April 1996 (when he was the Deputy National Security Advisor), and again in August 1997. In response to specific interrogatories from the Select Committee, the National Security Advisor informed the Select Committee that the President was not briefed about the issue and the long-term counterintelligence problems at the Department of Energy until early 1998. The Secretary of Energy was briefed about the matter in late 1995 and early 1996. At the writing of this report, the Secretary of Defense has been briefed, but not the Secretaries of State and Commerce.
Congress was not provided adequate briefings on the extent of the PRCís espionage program.
Under Presidential Decision Directive 61 issued in February 1998, the Department of Energy was required to implement improved counterintelligence measures. In December 1998, the Department of Energy began to implement a series of recommended improvements to its counterintelligence program approved by Secretary Richardson in November 1998. Based on testimony by the new head of the Department of Energyís counterintelligence program, the unsuccessful history of previous counterintelligence programs at the Department of Energy, and other information that is not publicly available, the Select Committee judges that the new counterintelligence program at the Department of Energy will not be even minimally effective until at least the year 2000.
Since the collapse of the Soviet Union, and continuing today, Russia is cooperating with the PRC in numerous military and civilian programs, including the PRCís civilian nuclear program. The Select Committee is concerned about the possibility of cooperation between Russia and the PRC on nuclear weapons. The Select Committee judges that Russian nuclear weapons testing technology and experience could significantly assist the PRCís nuclear weapons program, including the PRCís exploitation of stolen U.S. thermonuclear warhead design information. This is especially true if the PRC complies with the Comprehensive Test Ban Treaty, which does not permit the physical testing of nuclear weapons.
The Peopleís Republic of Chinaís penetration of our national weapons laboratories spans at least the past several decades, and almost certainly continues today.
The PRCís nuclear weapons intelligence collection efforts began after the end of the Cultural Revolution in 1976, when the PRC assessed its weaknesses in physics and the deteriorating status of its nuclear weapons programs.
The PRCís warhead designs of the late 1970s were large, multi-megaton thermonuclear weapons that could only be carried on large ballistic missiles and aircraft. The PRCís warheads were roughly equivalent to U.S. warheads designed in the 1950s. The PRC may have decided as early as that time to pursue more advanced thermonuclear warheads for its new generation of ballistic missiles.
The PRCís twenty-year intelligence collection effort against the U.S. has been aimed at this goal. The PRC employs a "mosaic" approach that capitalizes on the collection of small bits of information by a large number of individuals, whic h is then pieced together in the PRC. This information is obtained through espionage, rigorous review of U.S. unclassified technical and academic publications, and extensive interaction with U.S. scientists and Department of Energy laboratories.
The Select Committee judges that the PRCís intelligence collection efforts to develop modern thermonuclear warheads are focused primarily on the Los Alamos, Lawrence Livermore, Sandia, and Oak Ridge National Laboratories.
As a result of these efforts, the PRC has stolen classified U.S. thermonuclear design information that helped it fabricate and successfully test a new generation of strategic warheads.
The PRC stole classified information on every currently deployed U.S. intercontinental ballistic missile (ICBM) and submarine-launched ballistic missile (SLBM). The warheads for which the PRC stole classified information include: the W-56 Minuteman II ICBM; the W-62 Minuteman III ICBM; the W-70 Lance short-range ballistic missile (SRBM); the W-76 Trident C-4 SLBM; the W-78 Minuteman III Mark 12A ICBM; the W-87 Peacekeeper ICBM; and the W-88 Trident D-5 SLBM. The W-88 warhead is the most sophisticated strategic nuclear warhead in the U.S. arsenal. It is deployed on the Trident D-5 submarine-launched missile.
In addition, in the mid-1990s the PRC stole from a U.S. national weapons laboratory classified U.S. thermonuclear weapons information that cannot be identified in this unclassified Report. Because this recent espionage case is currently under inve stigation and involves sensitive intelligence sources and methods, the Clinton administration has determined that further information may not be made public.
The PRC also stole classified information on U.S. weapons design concepts, on weaponization features, and on warhead reentry vehicles (the hardened shell that protects a warhead during reentry).
The PRC may have acquired detailed documents and blueprints from the U.S. national weapons laboratories.
The U.S. Intelligence Community reported in 1996 that the PRC stole neutron bomb technology from a U.S. national weapons laboratory. The PRC had previously stolen design information on the U.S. W-70 warhead in the late 1970s; that earlier theft, w hich included design information, was discovered several months after it took place. The W-70 has elements that can be used as a strategic thermonuclear warhead or an enhanced radiation ("neutron bomb") warhead. Following the initial theft of W-70 design information, the PRC tested a neutron bomb in 1988.
Classified U.S. Nuclear Weapons Information Acquired by the PRC
Designation Design Laboratory Weapon Platform
W-88 Los Alamos Trident D-5 SLBM
W-87 Lawrence Livermore Peacekeeper/M-X ICBM
W-78 Los Alamos Minuteman III Mark 12A ICBM
W-76 Los Alamos Trident C-4 SLBM
W-70 Lawrence Livermore Lance SRBM
W-62 Lawrence Livermore Minuteman III ICBM
W-56 Lawrence Livermore Minuteman II ICBM
The PRC may have also acquired classified U.S. nuclear weapons computer codes from U.S. national weapons laboratories. The Select Committee believes that nuclear weapons computer codes remain a key target for PRC espionage. Nuclear weapons codes are important for understanding the workings of nuclear weapons and can assist in weapon design, maintenance, and adaptation. The PRC could make use of this information, for example, to adapt stolen U.S. thermonuclear design information to meet the PRCís particular needs and capabilities.
During the mid-1990s, it was learned that the PRC had acquired U.S. technical information about insensitive high explosives. Insensitive high explosives are a component of certain thermonuclear weapons. Insensitive high explosives are less energet ic than high explosives used in some other thermonuclear warheads, but have advantages for other purposes, such as thermonuclear warheads used on mobile missiles.
The PRC thefts from our national weapons laboratories began at least as early as the late 1970s, and significant secrets are known to have been stolen as recently as the mid-1990s. Such thefts almost certainly continue to the present.
The Clinton administration has determined that additional information about PRC thefts included in this section of the Select Committeeís Report cannot be publicly disclosed.
The PRCís Next Generation Nuclear Warheads
The PRC has acquired U.S. nuclear weapons design information that could be utilized in developing the PRCís next generation of modern thermonuclear warheads.
The Department of Energy identifies two general design paths to the development of modern thermonuclear warheads:
* The first path, which apparently has been followed by the Russians, emphasizes simplicity and reliability in design
* The second path, which the U.S. has taken, utilizes innovative designs and lighter-weight warheads
The Select Committee judges that the combination of the PRCís preference for U.S. designs, the PRCís theft of design information on our most advanced thermonuclear warheads, and the PRCís demand for small, modern warheads for its new generation of mobile intercontinental ballistic missiles will result in the PRC emulating the U.S. design path to develop its next generation of thermonuclear warheads.
The PRC has already begun working on smaller thermonuclear warheads. During the l990s, the PRC was working to complete testing of its modern thermonuclear weapons before it signed the Comprehensive Test Ban Treaty in 1996.1 The PRC conducted a se ries of nuclear tests from 1992 to 1996. Based on what is known about PRC nuclear testing practices, combined with data on PRC warhead yield and on PRC missile development, it is clear that the purpose of the 1992 to 1996 test series was to develop small , light warheads for the PRCís new nuclear forces.2
These tests led to suspicions in the U.S. Intelligence Community that the PRC had stolen advanced U.S. thermonuclear warhead design information. These suspicions were definitely confirmed by the "walk-in" information received in 1995.
The Select Committee judges that the PRC is developing for its next generation of road-mobile intercontinental ballistic missiles smaller, more compact thermonuclear warheads that exploit elements of stolen U.S. design information, including the st olen design information from the U.S. W-70 Lance warhead or the W-88 Trident D-5 warhead.
The following graph shows an unclassified history of the PRCís thermonuclear weapons development and its acquisition of classified information from the United States.
Completing the development of its next-generation warhead poses challenges for the PRC. The PRC may not currently be able to match precisely the exact explosive power and other features of U.S. weapons. Nonetheless, the PRC may be working toward this goal, and the difficulties it faces are surmountable. Work-arounds exist, using processes similar to those developed or available in a modern aerospace or precision-guided munitions industry. The PRC possesses these capabilities already.
The Impact of the PRCís Theft of U.S. Thermonuclear Warhead Design Information
Mobile and Submarine-Launched Missiles
The main application of the stolen U.S. thermonuclear warhead information will likely be to the PRCís next-generation intercontinental ballistic missiles.
The PRC is developing several new, solid-propellant, mobile intercontinental ballistic missiles. These include both road-mobile and submarine-launched intercontinental ballistic missiles.
Road-mobile ballistic missiles and submarine-launched ballistic missiles require smaller, more advanced thermonuclear warheads. The Select Committee judges it is likely that the PRC will use a new, smaller thermonuclear warhead on its next generat ion road-mobile, solid-propellant ICBM, the DF-31.
The DF-31 is likely to undergo its first test flight in 1999, and could be deployed as early as 2002. Introduction of the PRCís new, smaller thermonuclear warhead into PLA service could coincide with the initial operational capability of the new r oad-mobile DF-31 ballistic missile system.
The Select Committee judges that the PRCís thermonuclear warheads will exploit elements of the U.S. W-70 Lance or W-88 Trident D-5 warheads. While the PRC might not reproduce exact replicas of these U.S. thermonuclear warheads, elements of the PRC ís devices could be similar.
Acceleration of PRC Weapons Development
The PRCís theft of classified U.S. weapons design information saved the PRC years of effort and resources in developing its new generation of modern thermonuclear warheads. It provided the PRC with access to design information that worked and was within the PRCís ability to both develop and test. And it saved the PRC from making mistakes or from pursuing blind alleys.
The loss of design information from the Department of Energyís national weapons laboratories helped the PRC in its efforts to fabricate and successfully test its next generation of nuclear weapons designs. These warheads give the PRC small, modern thermonuclear warheads roughly equivalent to current U.S. warhead yields.
Assessing the extent to which design information losses accelerated the PRCís nuclear weapons development is complicated because so much is unknown. The full extent of U.S. information that the PRC acquired and the sophistication of the PRCís indi genous design capabilities are unclear. Moreover, there is the possibility of third country assistance to the PRCís nuclear weapons program, which could also assist the PRCís exploitation of the stolen U.S. nuclear weapons information. Nonetheless, it i s patent that the PRC has stolen significant classified U.S. design information on our most modern thermonuclear warheads.
While it is sometimes argued that eventually the PRC might have been able to produce and test an advanced and modern thermonuclear weapon on its own, the PRC had conducted only 45 nuclear tests in the more than 30 years from 1964 to 1996 (when the PRC signed the Comprehensive Test Ban Treaty), which would have been insufficient for the PRC to have developed advanced thermonuclear warheads on its own. This compares to the approximately 1,030 tests by the United States, 715 tests by the Soviet Union , and 210 by France.3
The following illustrates the evolution of smaller U.S. warheads.4
Effect on PRC Nuclear Doctrine
Deploying new thermonuclear weapons provides the PRC with additional doctrinal and operational options for its strategic forces that, if exercised, would be troublesome for the United States.
Smaller, more efficient thermonuclear warheads would provide the PRC with the opportunity to develop and deploy a multiple independently-targetable reentry vehicle (MIRV) should it decide to do so. These smaller designs would allow the use of ligh ter and faster reentry vehicles that may be better able to stress and to overcome ballistic missile defenses.
The PRC has expressed considerable opposition to U.S. deployment of ballistic missile defenses.
Other advantages of increased warhead yield-to-weight ratios include extended missile ranges and accuracy improvements. Smaller warheads result in a more compact missile payload, extending the range of ballistic missiles. This permits the use of smaller-diameter sea-launched ballistic missiles and mobile missiles to strike long-range targets. Longer range could enable PRC ballistic missile submarines to strike the U.S. from within PRC waters, where they can operate safely.
Multiple Warhead Development
The deployment of multiple warheads on a single missile requires smaller warheads that the PRC has not possessed.
The Select Committee has no information on whether the PRC currently intends to develop and deploy multiple independently targetable reentry vehicle systems. However, the Select Committee is aware of reports that the PRC has undertaken efforts rel ated to multiple warhead technology.
Experts believe that the PRC currently has the technical capability to develop and deploy silo-based ballistic missiles with multiple reentry vehicles (MRVs) and multiple independently-targetable reentry vehicles (MIRVs). Experts also agree that t he PRC could develop and deploy its new generation of mobile intercontinental ballistic missiles with MRVs or MIRVs within a short period of years after a decision to do so, and consistent with the presumed timeframe for its planned deployment of its next -generation intercontinental ballistic missiles.