Pakistan’s nuclear weapons: how safe is safe enough? Transparency versus opacity

Due to expanding and increasing religious extremism and terrorism coupled with political instability in Pakistan, most western observers believe that Pakistan's nuclear weapons are not secure and could be taken over by terrorists. This would have adverse implications for the region and for global peace, especially for the security of USA and Europe. This article argues that this perception is based on a flawed understanding and knowledge of how Pakistan's command and control setup has evolved and operates. Pakistan's nuclear weapons are as safe as any other state's nuclear weapons. Pakistan has also been active in supporting and participating in global efforts to improve nuclear safety and security. Over the years, Pakistan has been quite open in sharing information regarding how it is improving its command and control system with western governments as well as scholars. This article argues that the steps Pakistan has taken to secure its nuclear weapons are adequate and that Pakistan would continue to further strengthen these measures; however, it is the expanding religious extremism, terrorism and anti-Americanism in the country which make the international perception of Pakistan extremely negative and then seep into the perception of Pakistan's nuclear weapons safety and security.     

India and Pakistan: Bargaining in the Shadow of Nuclear War

Based on the experience of the Cold War, some scholars hoped that the introduction of nuclear weapons into South Asia would promote peace between India and Pakistan. Instead, nuclear weapons made Pakistan less fearful of India's conventional military forces, and therefore help explain recent conflicts between them. Moreover, US expressions of concern about the possibility of inadvertent nuclear war in South Asia may have provided an incentive to both sides to be intransigent in order to elicit US intervention.     

THE ORIGINS OF AND PROSPECTS FOR RUSSIAN NUCLEAR DOCTRINE

This article explores Russia's increasing reliance on nuclear weapons from three perspectives. First, it seeks to demonstrate that the phenomenon is not exclusively limited to Russia and represents a broader trend, which is ultimately rooted in the nature of the contemporary international system or, more precisely, the uncertainties of the transitional period between the Cold War system and a new emerging one. Second, it analyzes the role assigned to nuclear weapons in Russia's doctrinal documents, in particular the emergence of a new mission—limited-use of nuclear weapons to deter or, if deterrence fails, to de-escalate large-scale conventional conflicts. Discussions of the new doctrine, which have begun recently, suggest that this new mission will likely remain unchanged. Finally, this article looks at the apparent discrepancy between Russia's nuclear modernization programs and the roles assigned to nuclear weapons in the military doctrine, as well as the causes of that discrepancy.     

NO SUCH THING AS A FREE LUNCH

The funding of international nuclear risk mitigation is ad hoc, voluntary, and unpredictable, offering no transparent explanation of who is financially responsible for the task or why. Among many non-nuclear-armed states, this exacerbates a sense of injustice surrounding what they see as a discriminatory nuclear regime. The resulting erosion of the regime's legitimacy undermines support for efforts to prevent nuclear weapons dissemination and terrorism. This article proposes a transparent, equitable “nuclear-user-pays” system as a logical means of reversing this trend. This system envisions states contributing financially to international efforts to mitigate nuclear risks at a level relative to the degree of nuclear risks created by each state. “National nuclear risk factors” would be calculated by tabulating the risks associated with each state's civilian and military nuclear activities, as well as advanced dual-use and nuclear-capable missile activities, multiplying the severity of each risk by the probability of it occurring, and combining these results. A nuclear-user-pays model would create financial incentives for national and corporate nuclear risk mitigation, boost legitimacy and support for nuclear control efforts among non-nuclear-armed states, assist in preventing nuclear weapons dissemination and terrorism, and advance nuclear disarmament by helping progressively devalue nuclear weapons.     

The Management of Pakistan's Nuclear Arsenal

Pakistan, the fastest growing nuclear weapon state in the world, has established over the last decade a nuclear management system it holds to be “foolproof.” Despite the explosion of radical groups challenging the writ of the state, it dismisses concerns by critics that its nuclear weapons are not safe and secure as “preposterous” and an attempt to “malign” the state. This article examines Pakistan's nuclear management system in four functional areas: command-and-control, physical security, nuclear surety, and doctrine. It describes what is publicly known in each area, identifies areas of omission and inadequacy in each one, and examines several premises of the nuclear program the author considers to be unfounded. Comparing these deficiencies in Pakistan's nuclear management system to the current problems plaguing the US nuclear management system, the author concludes that complacency and unfounded confidence in the efficacy of such programs, if not addressed and corrected, could lead to a future nuclear catastrophe in South Asia.     

Country survey IV: Pakistan

This paper examines the role of the military in Pakistan, particularly in regard to civil‐military relations and defence industrialisation. Pakistan's military expenditure is relatively high, but apart from investment multipliers, little of this spending filters through to the civil sector. Pakistan's defence‐industrial strategy centres on rebuild and Chinese technological collaboration. However, while this ‘capital‐saving’ approach has merit, the strategy has thus far failed to stimulate broader civil development linkages. A conclusion of this paper is that Pakistan is failing to maximise the strategic dual‐use benefits of integrating civil‐military activity.     

United States Internal Security Assistance to Pakistan1

Pakistan confronts numerous domestic security challenges including jihadist extremism, Sunni-Shi'a sectarian violence, drug trafficking, illegal commodity smuggling, endemic corruption, and systemic problems with the provision of justice and law enforcement. While much has been written about US military assistance to the Government of Pakistan (GOP) and the ever-evolving political relations between the two countries, basic questions of highest policy significance related to Pakistan's internal security have never been fully studied or considered. This essay begins to address these empirical lacunae. It first provides a comprehensive examination of Pakistan's internal security environment and the effectiveness of the GOP's criminal justice structures in dealing with these challenges. The paper then goes on to assess the impact and utility of the current suite of US law enforcement assistance in helping to fortify Pakistan's domestic security environment. The study raises a number of difficult questions pertinent to the long-term impact of this support, particularly in terms of its effect on fostering a viable, accountable and transparent system of civilian governance and policing.     

Nuclear Weapons and the Vietnam War

This article analyzes why US leaders did not use nuclear weapons during the Vietnam War. To date, there has been no systematic study of US decision-making on nuclear weapons during this war. This article offers an initial analysis, focusing on the Johnson and Nixon administrations. Although US leaders did not come close to using nuclear weapons in the conflict, nuclear options received more attention than has previously been appreciated. Johnson's advisers raised the issue of nuclear weapons and threats on several occasions, and Henry Kissinger, Nixon's national security adviser, looked into nuclear options to bring the war to an end. Ultimately, however, both administrations privately rejected such options. The conventional explanation for the non-use of nuclear weapons during the Cold War – deterrence – is insufficient to explain the Vietnam case. This article analyzes the role of military, political and normative considerations in restraining US use of nuclear weapons in the Vietnam War. It argues that while military and political considerations, including escalation concerns, are part of the explanation, a taboo against the use of nuclear weapons played a critical role.     

South Asia's Missile Expansion

ABSTRACT

Over the past decade, contrary to declarations that they are pursuing “minimum” deterrence, India and Pakistan have considerably expanded their missile forces. India has developed eleven types of missiles while Pakistan has fielded nine. These missile forces have a mixed impact on deterrence stability. Both states' medium-range missiles strengthen their countervalue deterrent capabilities against the other, though India's China-specific missiles still have limitations. India's and Pakistan's short-range missiles and first-generation naval systems raise concerns about nuclear ambiguity, command and control, and escalation across the nuclear threshold, ultimately undermining deterrence stability on the subcontinent.     

The Requirements of Nuclear Stability in South Asia

While recent history arguably demonstrates a high level of nuclear stability in South Asia, this article argues that this stability has historically been a function of India's relative weakness. It argues that, as India becomes stronger, attention must be paid to the technical and political requirements of nuclear stability: the reliability of weapons and command and control and the political conditions that underpin stable relations between nuclear-armed states. It concludes by recommending the United States aim to modify the perceptions of regional elites about their various intentions and decision-making processes and the role of the United States as crisis manager.     

Nuclear opportunism: A theory of how states use nuclear weapons in international politics

How do states use nuclear weapons to achieve their goals in international politics? Nuclear weapons can influence state decisions about a range of strategic choices relating to military aggression, the scope of foreign policy objectives, and relations with allies. The article offers a theory to explain why emerging nuclear powers use nuclear weapons to facilitate different foreign policies: becoming more or less aggressive; providing additional support to allies or proxies, seeking independence from allies; or expanding the state’s goals in international politics. I argue that a state’s choices depend on the presence of severe territorial threats or an ongoing war, the presence of allies that provide for the state’s security, and whether the state is increasing in relative power. The conclusion discusses implications of the argument for our understanding of nuclear weapons and the history of proliferation, and nonproliferation policy today.     

Re-thinking the Unthinkable: Arms Control in the Twenty-First Century

ABSTRACT

Since the end of the Cold War, arms control proponents tried to make the case for deep nuclear reductions and other forms of security cooperation as necessary for strategic stability. While different versions of strategic stability analysis did sometimes produce innovative proposals, constructive negotiations, and successful ratification campaigns in the past, this analytical framework has become more of a hindrance than a help. Treating arms control as a predominantly technical way to make deterrence more stable by changing force structure characteristics, military operations, relative numbers of weapons on either side, or total number of nuclear weapons gives short shrift to political factors, including the fundamental assumptions about world politics that inform different arms control logics, the quality of political relations among leading states, and the political processes that affect negotiation, ratification, and implementation. This article compares two logics for arms control as a means to enhance strategic stability, one developed by the Cambridge community in the 1960s and one used by the Reagan administration and its successors, with current perspectives on strategic stability in which flexibility and freedom of action are preferable to predictability and arms control. It also contrasts what the Barack Obama administration has tried to achieve through strategic stability dialogues with Russia and China with how they envision security cooperation. It then presents an approach developed during the Cold War by Hedley Bull for thinking about both the technical and the political dimensions of arms control, and suggests that the logic of Cooperative Security (which shares important features with Bull's approach) is a more appropriate and productive way to think about arms control in the twenty-first century than strategic stability analysis is.     

Attacking the Atom: Does Bombing Nuclear Facilities Affect Proliferation?

Abstract

What are the consequences of military strikes against nuclear facilities? In particular, do they ‘work’ by delaying the target states ability to build the bomb? This article addresses these questions by conducting an analysis of 16 attacks against nuclear facilities from 1942 to 2007. We analyze strikes that occurred during peacetime and raids that took place in the context of an ongoing interstate war. The findings indicate that strikes are neither as uniformly fruitless as the skeptics would suggest, nor as productive as advocates have claimed. There is evidence that the peacetime attacks delayed the target's nuclear program, although the size of this effect is rather modest. The wartime cases were less successful, as attacks often missed their targets either due to operational failure or limited intelligence on the location of critical targets. In our concluding section we show that many of the conditions that were conducive to past success are not present in the contemporary Iran case. Overall, our findings reveal an interesting paradox. The historical cases that have successfully delayed proliferation are those when the attacking state struck well before a nuclear threat was imminent. Yet, this also happens to be when strikes are the least legitimate under international law, meaning that attacking under these conditions is most likely to elicit international censure.     

Atomic intelligence in Norway during the Cold War

Thanks to its geographical location and close military ties to the US and Britain, Norway took substantial part in the Western intelligence effort against the Soviet nuclear weapons programme during the Cold War. Norway's relative proximity to the nuclear weapons test sites on Novaya Zemlya and the nuclear submarine bases on the Kola Peninsula was of particular importance in this regard. Whereas the tasks of surveying the development, deployment and possible employment of Soviet nuclear forces always had first priority, Western atomic intelligence conducted from Norwegian soil and waters was occasionally aimed even at gathering information about the geophysical and possible long-term medical and environmental implications of high-yield nuclear explosions in the atmosphere.     

India nuclear weapons: No first use or no full disclosure?

This article argues India is laying the foundation to move away from “no-first-use” (NFU) as its nuclear weapons employment policy. Since the inception of its nuclear weapons program, India has claimed NFU as the centerpiece of its nuclear strategy. But India has a history of developing foundational changes to its nuclear weapons program before such changes actually occur. For example, the infrastructure of India’s nuclear weapons program was already being created in the 1950s under the guise of civilian nuclear power. Similarly, the weaponization of India’s program, which did not officially occur until after the 1998 tests, had its genesis in far earlier decisions. A close examination of trends in India’s nuclear weapons production complex, its delivery systems, and its command and control complex all lead to the conclusion that India is laying the groundwork for more flexible employment options, up to and including first use. This article does not argue such a decision has been taken. Rather, it argues the underpinning is in place to allow for a move to more flexible options, perhaps very quickly, at some point in the future. This could occur during crisis or it could occur incrementally over time.     

The Meaning of the Nuclear Evolution: China's Strategic Modernization and US-China Security Relations

Abstract

Will China's development of a new generation of nuclear weapons impact US-China security relations in important ways? One's answer depends on how one views the following: whether or not Chinese leaders believe that they are only now acquiring a secure second strike capability; the scope of coercive power that secure second strike capability provides to conventionally inferior actors; the meaning of China's ‘No First Use’ Doctrine; and the prospects for escalation control in future crises. Applying Cold War theories and tapping Chinese doctrinal writings this article concludes that China's nuclear modernization program might prove more consequential than is commonly believed.     

Command and Control of India's Nuclear Forces

The Indian government has not made a public comment about the status of its nuclear weapon program since approving a nuclear doctrine in 2003. However, there is now enough information in the public domain to determine that the command-and-control system for the nuclear program has steadily matured in accordance with the intent of the approved nuclear doctrine. The Indian government has successfully mitigated many of the issues that plague the conventional military. The result is a basic command-and-control system that is focused only on the delivery, if ordered by the prime minister, of nuclear weapons. The system is not as robust as those of the United States and Russia, but is in place and ready as new Indian nuclear weapons enter into operation. The command-and-control system is developing to meet India's needs and political compulsions, but not necessarily as part of a more assertive nuclear policy.     

Pakistan's Evolving Nuclear Weapon Posture

This essay provides an overview of the ongoing quantitative and qualitative changes in Pakistan's nuclear arsenal and their impact on deterrence stability vis-à-vis India. Prominent among these trends is a major expansion in fissile material production that enables the manufacture of lighter and more compact warheads optimized for battlefield missions; the development of cruise missiles and shorter-range ballistic missiles possessing dual-use capabilities; and a greater emphasis in doctrinal pronouncements on the need for strike options geared to all levels of conflict. Although these trends pose problematic ramifications for the risks of unauthorized and inadvertent escalation, deterrence stability in South Asia is not as precarious as many observers fear. The challenges of fashioning a robust nuclear peace between India and Pakistan cannot be lightly dismissed, however, and policy makers would do well to undertake some reinforcing measures.     

TACTICAL NUCLEAR WEAPONS IN ITALY: Striking a Balance between Disarmament Aspirations and Alliance Obligations

Despite the fact that Italy hosts almost half of the remaining estimated 150–200 US tactical nuclear weapons (TNW) that are currently deployed in Europe, case studies of Italy have been largely neglected. The article seeks to fill that gap by outlining the key elements of Italy's position regarding the presence, role, and future of TNW in Italy. By considering both the military and political-symbolic dimensions of TNW, the author argues that Italy has largely embraced the process of the devaluation of nuclear weapons; however, this is offset by the country's determination to preserve the principles of solidarity and the indivisibility of Euro-Atlantic security. By making the alliance's cohesion a priority, Italy appears willing to postpone the complete elimination of TNW from its territory if necessary; despite this, Italy otherwise considers TNW to be not only weapons of little intrinsic value but also obstacles to the global nuclear disarmament program that it strongly supports.     

Samudra: India’s convoluted path to undersea nuclear weapons

ABSTRACT

India is advancing slowly toward operationalizing its nuclear triad. Its first nuclear-propelled ballistic-missile submarine (SSBN), the INS Arihant, conducted its maiden deterrent patrol in November 2018. However, doubts exist around the capability of India’s SSBN, the effectiveness of its command and control, and its effects on regional stability in South Asia. This article examines the history and future trajectory of India’s sea-based nuclear forces and describes how India seeks to maintain robust command and control over its undersea nuclear weapons.