It was a very difficult decision, but without interim funding, the airline is simply not able to carry out the flight operations. Given the many asymmetries in both countries, the imposition of equivalent restrictions required quite complex and precise provisions. At the time of signing, the United States had 1,054 operational land-based ICBMs, none of which were under construction; the Soviet Union had an estimated 1,618 people in service and under construction. Launchers under construction could be completed. Neither side would start building other fixed ground-based launchers during the term of the contract, which prohibits the relocation of existing launchers. Launchers for light or older ICBMs cannot be converted to launchers for modern heavy ICBMs.