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The Trump administration may have just signed an agreement so controversial that President Donald Trump himself is opposed to it. 

On Wednesday, the US and Saudi Arabia signed a 30-year, multibillion-dollar nuclear energy cooperation agreement. The terms of the deal signed by Secretary of Energy Chris Wright and his Saudi counterpart have not been released, but some of the details discussed by officials in reporting by the Wall Street Journal and New York Times earlier this week raised eyebrows, mainly the fact that in addition to helping the Saudis construct nuclear reactors, the US could potentially help the Saudis construct facilities to enrich their own uranium.

The timing is particularly awkward with the US currently at war with Saudi Arabia’s rival Iran, in large part due to concerns about that country’s nuclear enrichment program. 

It is also happening in the context of an emerging new nuclear world, where last century’s arms control agreements are falling by the wayside, regimes like Russia are increasingly employing nuclear threats, and longtime US allies are increasingly nuclear-curious due to both growing military threats and skepticism about the value of American security guarantees. It could raise the risk that other countries will seek the capability to raise the bomb, even if they don’t immediately build one. 

“It’s unprecedented in the history of US nuclear policy,” said Matthew Kroenig, senior fellow at the Atlantic Council and author of the book, Exporting the Bomb. “Never before have we helped another country build a uranium enrichment facility. All the way back to Eisenhower, the deal has been: If you want nuclear energy, terrific. We’re happy to help you, but you can’t make the fuel because once you make the fuel, it’s too dangerous.”

Whether the deal will even happen is getting less clear. The agreement was already going to face significant opposition in Congress, where it must be sent for review, but Trump added to the confusion on Thursday morning with a Truth Social post that contradicted much of what had been reported the day before. Trump wrote that there would be “no enrichment of material” under the deal and that the agreement is “totally subject to Saudi Arabia joining the very respected and successful Abraham Accords,” referring to the series of diplomatic normalization agreements between Israel and a number of Muslim countries signed during Trump’s first term. This was not reported in any of the media accounts earlier in the week, which were based on statements from US officials. 

The Saudi government has not yet responded to Trump’s latest statement, but sources close to the talks have indicated that no such pledge was included in the negotiations. 

Saudi Arabia has long insisted that it will not normalize relations with Israel until the creation of a Palestinian state, and if they had caved on that position prior to the agreement, it seems unlikely that no one would have mentioned it before today. At a press briefing on Thursday, White House spokesperson Karoline Leavitt affirmed that the deal would be “off” unless Saudi Arabia joined the Abraham Accords. Asked for clarification on the discrepancy between Wednesday’s reporting and Trump’s announcement on Thursday, the White House press office referred Vox to Leavitt’s statement. 

At the moment, there’s more confusion than clarity around the deal, and what it means for the future of both the Middle East and global efforts to control nuclear weapons. 

What’s standing between Saudi Arabia and a nuke?

This idea behind the Saudi deal isn’t new: Both the first Trump administration and the Biden administration pursued a civilian nuclear deal with the kingdom. It’s been a controversial notion for just as long, given Saudi Arabia’s often aggressive foreign policy, human rights record — including the high-profile murder of US citizens — and the fact that Crown Prince Mohammed bin Salman has said in the past that his country would seek to build its own nuclear bomb if Iran ever acquired one. 

Saudi Arabia insists that its interest in nuclear energy is purely peaceful — part of a larger goal to diversify its economy away from oil and gas and to generate power for a nascent artificial intelligence industry. Proponents in the US argue that a deal would deepen ties between the US and an important security partner. It would also, they argue, head off the risk of Saudi Arabia cooperating instead with China or Russia to build a nuclear program and be a potential windfall for the US nuclear power industry. 

The US has previously entered into 29 nuclear cooperation agreements — commonly known as “123 deals” for Section 123, the legislation that governs them — involving 49 countries. The deals require countries to submit to a number of safeguards to prevent them from weaponizing these nuclear programs, including requiring US consent for any enrichment of uranium for the US-built nuclear plants. 

In more recent US deals, most countries have agreed to give the International Atomic Energy Agency even more stringent inspection authorities. Some have gone further: Under the deal signed with the United Arab Emirates in 2009 and Taiwan in 2013, the countries agreed to forswear any enrichment of uranium on their soil, including for projects in which the United States is not involved. This has been called the “gold standard” for nuclear sharing deals, and it’s what the US pushed for in previous nuclear sharing negotiations with Saudi Arabia. 

The Saudis have long balked at some of the stricter provisions in some more recent US deals, such as additional IAEA inspections and a pledge to enrich no uranium at all. The kingdom has argued these are intrusive infringements on its sovereignty, particularly given that Iran was allowed to continue enriching under previous agreements with the US. But, Kroenig said, there’s little plausible reason to oppose these restrictions if Saudi Arabia is only interested in civilian energy.

“They probably haven’t decided to build nuclear weapons yet, but it seems like they want the option,” Kroenig said.

Saudi Arabia is not going to build a bomb overnight. It’s not even going to start enriching uranium for some time. Under the deal — at least the version that was reported earlier this week by the Wall Street Journal — US companies would immediately begin work on building nuclear power plants when the deal goes into force, while US and Saudi officials would conduct a two-year study to determine “value of enrichment for Saudi Arabia.” (This, notably, would likely be concluded during Trump’s term.)

In this respect, the deal may in fact be tougher than the never-concluded Biden agreement, which reportedly would have allowed enrichment to begin immediately. 

If the study concludes Saudi Arabia needs to enrich, the enrichment facility would be constructed in a secretive “black box” to prevent the Saudis from acquiring sensitive technology. If the US objects to Saudi enrichment after the study, the Saudis couldn’t enrich for another 10 years. After that, it’s not clear what happens. 

The safeguards do not mollify many nonproliferation experts. 

“Skeptical is a mild way of putting it,” said James Acton, co-director of the Nuclear Policy Program at the Carnegie Endowment. “Even if you black-box the technology, Saudi Arabia could still nationalize the facility. This is a country that has overtly declared an interest in proliferation. Once it’s on Saudi soil, you have very limited options to stop it from misusing that technology if it decides to do so.”

The most difficult and expensive part of building a nuclear device is uranium enrichment, and the US will have helped Saudi Arabia a long way down that path. That doesn’t mean the kingdom is necessarily planning to build a bomb, but if it decides on that course of action down the road, it will have a significant head start.

“Saudi Arabia’s nuclear program does not pose a near-term proliferation risk,” said Kelsey Davenport, director for nonproliferation policy at the Arms Control Association. Rather than trying to quickly build a bomb, she suggested that “the more likely scenario is that Saudi Arabia will continue to acquire the capabilities that would be necessary to weaponize and move to the threshold of nuclear weapons, which would enable a rapid move to build the deterrent if the decision were made.”

This, she added, would both complicate ongoing nuclear talks with Iran and “set a terrible precedent” for future nuclear agreements. 

What happens now? 

“Look, there are some benefits to the deal,”  said Robert Einhorn, a former State Department special adviser for nonproliferation and arms control. “It will give a boost to the US nuclear industry. It will help cement US-Saudi strategic relations. It will deny Russia and China a foothold in an important element of the Saudi economy. But the Trump administration will have to work hard to convince the Congress and the American public that the shortcomings of the deal are not disqualifying.”

That process starts this week. The agreement will now be submitted to Congress for a 90-day review period. This isn’t a formal treaty that requires approval. Congress has to pass a joint resolution opposing it.

The deal is likely to draw opposition on both sides of the aisle. In 2019, then-Republican Sen. Marco Rubio (FL), now secretary of state, sponsored legislation that would require any 123 agreement with Saudi Arabia to be affirmatively approved by Congress.  (“I miss Sen. Rubio,” Rep. Brad Sherman (D-CA), a co-sponsor of the House version of the bill, said during a hearing on Wednesday.)

In addition to security concerns, the potential conflicts of interest around the bill may also draw scrutiny. Tom Barrack, a close Trump confidante who is now US ambassador to Turkey and an adviser on Middle East policy, was investigated by federal authorities and was the subject of a House probe during Trump’s first term for lobbying for nuclear deals with Saudi Arabia and the UAE while he had significant real estate investments in those countries and ties to the government.  

ProPublica also reported in 2019 that Barrack had sought a major financial stake in Westinghouse, the nuclear reactor builder. The Wall Street Journal wrote that Westinghouse Electric is likely to be one of the main beneficiaries of the deal to build nuclear reactors in the Kingdom.

It still seems unlikely that opponents of the deal in Congress will be able to cobble together a veto-proof majority to block it. The better question is whether Trump is effectively blocking it. If he is really going to insist on Saudi Arabia joining the Abraham Accords, that could be a nonstarter for Mohammed bin Salman. 

A new nuclear world takes shape

Events in recent years have led Saudi leaders to doubt the extent to which the US would really come to their aid in a worst-case scenario. There have been mixed reports about whether Saudi Arabia backed or opposed Trump’s decision to launch this year’s war on Iran — the Saudi government denies supporting it — but either way, if this war ends with Iran’s regime still in place, in possession of its uranium stockpile, and in control of the world’s most critical energy chokepoint, the doubts in Riyadh about America’s reliability will only increase, along with their nuclear ambitions. 

In the coming weeks, the White House will make the case that this deal is safer and more comprehensive than the ones the US would not agree to in the Biden administration and Trump’s first term. But that argument will be harder to make against the notion that Saudi Arabia’s incentive to build a bomb has only grown since then. 

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Even as the US conflict with Iran threatens to escalate once again, diplomatic talks break down, and US and Israel officials again flirt with the idea of pushing for regime change, President Donald Trump remains reportedly very reluctant to send US ground forces into Iran. That would risk causing large numbers of American casualties and pushing a war that many Americans have largely tuned out, even if they oppose it, back to the center of public debate. 

But that, tragically, does not mean that American troops involved in the conflict are necessarily safe. The past few days have been the deadliest for US forces since an initial ceasefire went into effect in April. On Friday, two US servicemembers were killed in a missile strike on a base in Jordan, marking the second time in two days that Iranian missiles had managed a direct hit on the base. On Saturday, a third US servicemember was killed in Iraq during the attempted controlled detonation of a downed Iranian attack drone. Altogether at least 17 US servicemembers have now been killed since the beginning of Operation Epic Fury in February. 

The US escalated its own attacks on Iran in retaliation, including a strike against the missile base in Tabriz, Iran where the attack on Jordan is thought to have originated. Iran has also fired missiles and drones at targets in Bahrain, Kuwait, and Qatar in recent days, most of them intercepted, as well as at several commercial ships in the Strait of Hormuz, where traffic has again ground to a near halt.

If Iran’s ability to shut down the strait has been the biggest surprise of this war, it’s ability to hold targets on land throughout the region at risk, including energy infrastructure and US military bases, with missiles and drones, may be the second. 

This suggests the risks to the US military as well as US allies from Iranian retaliation may only grow, the longer this conflict drags on, even if Trump never commits to “boots on the ground.” The president has sought to portray this as a war where the risk of death and destruction is borne only by one side, and certainly Iran has sustained far more damage. But there have already been a number of surprises in this war and the risks to the American military may be higher than most anticipated a few months ago.

The growing risk to US troops in the Middle East 

In the early days of the war, the military began shifting troops and equipment from bases in Persian Gulf countries like Bahrain, the United Arab Emirates, and Qatar farther west to Jordan and Israel, where they are subject to fewer local restrictions and where they sit farther from Iranian missile launchers. Satellite imagery and subsequent reporting has revealed that Iranian strikes did far more damage to these bases during the first phase of this war than was revealed at the time. 

More distant US bases may be harder to hit, but they are clearly still within the range of Iran’s missiles and Shahed drones. Some analysts also say the shift may have created new vulnerabilities by concentrating US personnel and equipment in fewer locations. 

The missile strike that killed Lt. Tyler James Feehan and Pvt. Isabella Gonzales on Friday was one of four Iranian attacks against bases in Jordan in just five days. The Iranians in fact appear to be striking Jordan more than Israel in recent days, which could be because these targets are less well-defended than Israeli bases or because they carry less escalation risk: Israeli leaders, unlike Trump, are eager to rejoin the war. 

 US officials suggested to the Wall Street Journal that Iran is adapting to US air defenses by “firing missiles that travel at extremely high speeds and can maneuver as they streak toward the earth,” making them harder to intercept. The officials also suggested the Iranians may be receiving targeting assistance from China or Russia. 

Or it may simply be that if Iranians can keep firing missiles and drones, no system will be able to provide perfect protection. 

“What it actually shows is that Iran is in a lot better shape than was assumed,” said Nicole Grajewski, an expert on Iran’s missile program and professor at Sciences Po in Paris. “Contrary to a lot of the US statements from early parts of the war, Iran still retains quite a significant amount of missile and drone capabilities, and because they’re not operating now under constant aerial bombardment, they may have been able to reconstruct part of it.” 

According to assessments reported in June, Iran still has access to most of its missile sites and around 70 percent of its prewar stockpile. 

And while Iran still possesses the ability to punch, there are growing questions about whether the US air defense capabilities are depleting. At the time of the April ceasefire, the Center for Strategic and International Studies estimated, the US had likely burned through more than 1,000 of its roughly 2,300 stockpile of Patriot interceptors, and between 50-80 percent of the highly advanced THAAD interceptors, designed for use against high-altitude, long-range ballistic missiles. 

The Pentagon has been pushing defense manufacturers to accelerate the production and bring down the costs of advanced interceptors, but that will take months if not longer, depending on the system. In the short term, missile defense scarcity is going to continue to be a source of stress if this conflict escalates. 

“We do not have enough [munitions] to safely sustain operations, and I don’t think the White House is aware of that,” one US official told the Washington Post this week. 

The US no longer dominates the skies the way it once did

US troops in the Middle East have long been vulnerable to missile attacks. One particularly infamous Iraqi Scud missile strike killed 27 American soldiers during the first Gulf War in 1991. 

But the proliferation of one-way attack drones like Iran’s Shaheds have shifted the balance, giving weaker adversaries the ability to target US bases at low cost. The attack that killed the two servicemembers on Friday was, like many of Iran’s attacks in this war, a combined missile and drone barrage intended to overwhelm the facility’s defenses. The best-case scenario from these strikes, from a US perspective, is that they are intercepted, albeit at the cost of draining valuable air defense resources. In the worst case, US soldiers are killed. 

A strike on another base in Jordan in early 2024 by the Iran-backed militia group the Islamic Resistance in Iraq, during the war in Gaza, that killed three US servicemembers was in some ways a warning of the risks US troops would face in a scenario where Iran itself targeted them with its full capabilities. Since at least the Korean War, the US military has gotten used to fighting with more or less full control of the skies. As far back as 2022, Gen. Frank McKenzie, commander of US forces in the Middle East, warned that “air superiority is something that we no longer have all the time” due to the proliferation of low-cost drones, which he compared to the improvised explosive devices, many planted by Iranian proxies, that killed hundreds of US troops during the war in Iraq. 

Thankfully, US casualties in this war are still nowhere close to those of either Iraq war. Trump told reporters on Sunday that “We feel very badly” about the deaths but that “those great patriots were out there fighting so that Iran does not have a nuclear weapon.” In recent weeks, the main focus of the war has been control of the Strait of Hormuz, rather than Iran’s nuclear program. 

The hard logic is that just as high fuel prices and declining poll numbers have not yet been enough to deter Trump from continuing to fight Iran, a few American casualties are not enough to be a deterrent to military action. In fact, as this weekend’s retaliatory strikes against Tabriz showed, they may only pull the US deeper into the war. 

As long as Trump avoids a ground invasion, Iran’s ability to target and kill US troops will remain limited. But as this past weekend’s events showed, that ability exists, and there is only so much the US can do to prevent it. The risk of an even larger catastrophe for American troops in the Middle East will only grow the longer this war goes on.  

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Last week presented a stark contrast in the trajectories of the Trump administration’s two riskiest foreign policy ventures. On July 13, the President Donald Trump formally declared a return to military action in Iran, making clear that a war that he had anticipated would last just four or five weeks will stretch past the five month mark and probably longer. Trump appears increasingly frustrated by Iran’s failure to concede to his demand to fully reopen the Strait of Hormuz, comparing the country to a “great boxer”: “You think you have them beat, and then all of a sudden he comes back and he gives you a shot.”

On the far side of the globe, however, the other country Trump attacked this term has proven much more manageable. Venezuela’s government — now led by former Vice President Delcy Rodríguez, who took power when Nicolás Maduro was captured in a US raid in January — agreed to talks with an opposition leader handpicked by the US that aimed at “strengthening democracy.” 

The New York Times reported earlier this week that US Secretary of State Marco Rubio is effectively the “viceroy” of Venezuela, ruling the country in absentia from Washington, DC. (“Viceroy” is traditionally an official who governs a country or colony as a direct representative of a monarch.) The US has direct control over the revenues Venezuela receives from selling its oil abroad, giving Rubio effective power over the country’s budget. The grip is so tight, the Times reports, that Rodriguez asks for White House approval before appearing on Fox News, much to Trump’s delight. 

Two different countries in two different parts of the world with two different responses to Trumpian military pressure. But when future historians tell the story of how this administration ended up enmeshed in exactly the sort of Middle East quagmire that he had run for office pledging to avoid, they’re likely to devote at least a few paragraphs to Venezuela. The easy success of one operation set the stage for the still unfolding disaster of the other. 

Exporting the Venezuela model

In a daring predawn raid on January 3, US Special Forces managed to capture Maduro in a matter of hours, with no US troops killed. Contrary to the warnings of critics that such regime change would result in chaos — and to the hopes of the Venezuelan opposition that it would lead to democracy — Trump and Rubio successfully replaced Maduro with his much more pliant vice president, who has proven more than happy to let Washington call the shots. Trump now regularly muses about making Venezuela the 51st state. 

The operation was, the Times reported, “evidence to the president of the unmatched prowess of U.S. forces” and, along with the relative success of the first round of airstrikes against Iran’s nuclear program last June, emboldened him to take further military action. 

“What we did in Venezuela, I think, is the perfect scenario,” Trump said in early March, referring to prospects for regime change in Iran. And in one sense it worked; the US was able to remove the head of state within hours of launching military action, with Iranian Ayatollah Ali Khamenei killed in a joint US-Israeli airstrike. 

 “I have to be involved in the appointment, like with Delcy in Venezuela,” Trump said, when Iran’s regime was considering Khamenei’s successor. 

Trump was not involved. Iran’s Assembly of experts chose the former supreme leader’s son, Mojtaba Khamenei, whom Trump dismissed as “unacceptable” and a “lightweight”.

Despite this, Trump continued to insist that regime change had effectively happened in Iran and that its new leaders were “much more reasonable.” While Iran’s new political system is still very much a work in progress, its insistence on maintaining control of the state and ongoing attacks against shipping and US allies in the region have made it fairly clear that it will not be taking orders from Marco Rubio or anyone else in DC. 

Why Iran is not Venezuela

On the surface, there are some striking similarities between Iran and Venezuela: They were once close allies of each other, as well as of Russia and China. Both are oil dependent authoritarian states espousing a revolutionary ideology defined in large part by opposition to the United States. Both are known for sponsoring foreign militant groups. Both have a history of disputed elections and crushing opposition protests. Both have large and vocal exile communities in the US. Both have struggling economies and have spent years under US sanctions. 

That’s where the similarities end, however. Start with the military: Iran’s combined forces are roughly three times the size of Venezuela’s and far better equipped, possessing missile and drone capabilities that have spread chaos across the region for months. Iran’s senior leaders came of age during the brutal Iran-Iraq war of the 1980s and have spent decades engaged in proxy battles with the US and Israel, whereas Venezuela has not fought an interstate war in modern times. It’s telling that Maduro was relying on Cuban personnel for his own security. 

Then, there’s geography. Thanks to its fortuitous location on the western side of the Strait of Hormuz, Iran has means to retaliate against the US by blocking shipping through the world’s most important energy chokepoint, driving up oil prices. Venezuela may have the world’s largest oil reserves, but it doesn’t have anywhere near the ability to disrupt global energy flows. 

Iran was able to attack US allies throughout the Gulf with both its own missiles and via the military groups it supports throughout the region. Despite Trump’s misleading claims that Maduro’s government was in direct control of gangs in the US or weaponizing migration, Venezuela simply didn’t have the same kind of leverage with which to fight back. 

There’s history, too. Even at the nadir of relations with the US, when Venezuela was under heavy American sanctions and formal diplomatic contacts were cut off, there were still periodic talks over energy issues and prisoner releases. The US oil company Chevron continued to operate inside the country. Rodriguez herself was a familiar figure to US officials, having participated in talks with both the Biden and Trump administrations. 

And finally, there’s ideology. Venezuela’s rulers may still be publicly committed to the “Bolivarian” socialist vision of former leader Hugo Chávez, but, in reality, the regime operates as “an extreme form of crony capitalism with some pretenses of redistribution of oil windfalls to the poor,” said Chris Sabatini, director of the Latin America program at the think tank Chatham House. Senior civilian and military officials were heavily involved in a range of enterprises of varying degrees of legality from the oil industry, from gold mining to drug trafficking. When push came to shove, they were more interested in preserving their fiefdoms than standing up for a long-dead revolution. 

According to some reporting, denied by the Venezuelan government, Rodríguez had been in direct contact with US officials prior to Maduro’s capture, assuring them of her cooperation, which would make this less a regime change invasion than a US-enabled coup. Even Interior Minister Diasdello Cabello, considered the hardest of the hardline Chavistas with a US price on his head, has been more than happy to play ball with the country’s new American overlords. 

Iran has widespread corruption, as well, but the regime is far more organized, disciplined, and committed to the radical Islamist ideology of the 1979 revolution. Iran’s leaders had long been planning for invasion and had detailed succession plans in place for when top leaders were eliminated.  The fact that the US’s Israeli partners were reportedly cultivating Mahmoud Ahmadinejad, the former president best remembered for calling for Israel to be wiped off the map and promoting a long-shot plan to arm Kurdish rebels to mount a ground invasion, is an indication that there were simply no plausible candidates for an “Iranian Delcy.” 

It should have been obvious from the start that a quick and easy operation that would replace Iran’s top leaders with more cooperative ones without requiring a dangerous and costly ground invasion by US troops was never a realistic prospect. It’s notable that the administration sidelined many of its own Iran experts ahead of the war, but, in fairness, Trump’s own CIA director dismissed Israel’s optimistic regime change scenarios as “farcical.” 

“President Trump has not really taken the time to study the history of Iran-US relations going back to 1979, or even earlier,” said the Middle East Institute’s Alex Vatanka. “If he had studied that relationship, I think he would have taken a different approach.” But Trump may have been thinking less about what happened in Tehran in 1979 than what had happened in Caracas just a few weeks earlier. 

The end of hubris?

Many scoffed in January when Trump suggested that the US would be “running” Venezuela for the foreseeable future, but that appears to be more or less what’s happening now. It’s not clear how long this arrangement can last. Discontent with both Rodríguez and Trump is growing in Venezuela, and many in the opposition accuse the government of using the recent devastating earthquake as a pretext to delay called-for democratic reforms. Venezuelans may come to hold the United States responsible for the failures of the government it is remotely controlling. 

But the initial success of the Venezuela operation was a vindication for a president who often sees himself as running the world in addition to the United States.

Has Trump faith in his ability to bend other countries to his will been shaken at all by the Iran experience? He has frequently described Cuba as “next” on the list of countries he’d like to “take” after Venezuela and Cuba.

In terms of culture and geography, Cuba may look more like Venezuela. But in terms of its political system, it’s “more like Iran,” said Sabatini. “It’s completely state-centric, vertical, disciplined.” Dealing with a system still fiercely devoted to its founding revolutionary ideology that has been largely isolated from the US for decades, the administration may have no better luck finding a “Cuban Delcy” than it did finding an Iranian one. 

Trump still hasn’t ruled out taking over Cuba in some fashion, and Pentagon planners are reportedly examining a range of options for action against the island, though he claimed Rubio wants to “get [Iran] finished first.” If that’s true, it may be a long wait until Iran is “finished.” 

On the other hand, Trump is once again talking about taking over Greenland and posting memes referencing his desire to annex Canada. Iran may have proven that Venezuela was the exception, not the rule, when it comes to regime change, but Trump’s ambitions for world domination do not seem to have disappeared. 

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