Administration began preparations to use force against North Korea. In 1994 nego October tiations between the United States and North Korea led to a Framework Agreement in which the North Korean government agreed to stop its nuclear weapons program and give interna tional inspectors leave to enter, in return for assistance in building replacement reactors for civilian use and regular supplies of fuel oil. In October 2002 North Korean officials admitted to having a program to enrich uranium for use in nuclear weapons, a violation of the 1994 agreement. Negotiations continued, and during a trilateral meeting between the United States official informed U.S. representatives and Korea in April 2003, a North that North Korea had at least one nuclear weapon 64 There was no independent verification on the Korean peninsula and of this claim, but if true it represents a dangerous development complicates future efforts at preventing the spread of nuclear weapons Of course, states are not the only actors who may be interested in acquiring nuclear weapons. Concern is increasing that nuclear weapons may fall into the hands of substate This has been magnified by over a decade of from the groups, especially terrorist organizations. fear concern over the security of weapons grade materials, technology, and warheads former Soviet Union and Russia. 65 ile the concern is considerable, the likelihood of a ter rorist organization acquiring a nuclear device or the capability to produce one is remote Terrorist organizations may not be able to achieve their goals with a weapon so destructive and its use (or the threat of its use) might be counterproductive. Developing such weapons is resources of most substate actors. Stealing a weapon also a diffi is not easy and is beyond the still have to cult proposition, but even if a warhead could be obtained, the terrorists would find someone with the knowledge to detonate the bomb, which is a rare talent. Nevertheless the threat of nuclear terrorism cannot be ignored, because the use of even t amounts of plutonium in a "radiological" or "dirty" bomb is a possibility and because the implications are so enormous