PART II: CONTINUING TO QUESTION THE RELIABILITY OF NUCLEAR DETERRENCE

Responding to Derrin Culp's critique, the author argues that distinguished nuclear theorists may be wrong because groups of experts have been wrong in the past, that city attacks are central to nuclear deterrence theory because killing civilians en masse is what nuclear weapons do best, and that understanding how effective city attacks would be in war is crucial to understanding how well they would work as threats. Moreover, while it is undeniable that nuclear deterrence works some of the time, this simply is not good enough. Because any failure of nuclear deterrence could end in catastrophic nuclear war, nuclear deterrence must be perfect or almost perfect. This is a very difficult standard to reach.     

Avoiding self-inflicted wounds to the credibility of the US nuclear deterrent

Nuclear deterrence requires not only the reliability of a state’s strategic weapons and the willingness of its leaders to employ them but also an adversary’s appreciation of these conditions. Weapons perceived as failing to hold their targets at risk may lack deterrent value, just as retaliatory threats that are not believable may fail to deter, even if a state’s operational capabilities are robust. Both the technical and political credibility of the US nuclear deterrent may have suffered self-inflicted harm since the end of the Cold War, often as casualties of intemperate policy debates. In particular, doubts have been sowed about the reliability of aging US warheads under a science-based stockpile-stewardship regime meant to substitute for nuclear-explosive testing. Likewise, the credibility of US deterrent threats may have waned as American leaders have spoken ever more stridently about the horrors of nuclear war and nuclear terrorism, underscoring their extreme aversion to the risk of nuclear attack. Diminished credibility in both spheres threatens to compromise US national-security objectives ranging from nuclear nonproliferation to the outcomes of nuclear crises.     

Deterrence of nuclear terrorism in the context of South Asia

Stability among the great powers during the Cold War is widely theorized in terms of nuclear deterrence. Rationality of States and their preference for survival are the basis of nuclear deterrence. The rationality of non-state terrorist groups is different from that of nation-states. Even though they are also rational actors with their own hierarchy of preferences, survival may not be their ultimate goal. Deterrence of nuclear terrorism is therefore different from deterrence against states. South Asia is more vulnerable to nuclear terrorism than any other region of the world for many reasons. This article analyzes the possibility of nuclear terrorism and the ways of deterrence against it in the context of South Asia.     

Deterrence of nuclear terrorism in the context of South Asia

Stability among the great powers during the Cold War is widely theorized in terms of nuclear deterrence. Rationality of states and their preference for survival are the basis of nuclear deterrence. The rationality of non-state terrorist groups is different from that of nation-states. Even though they are also rational actors with their own hierarchy of preferences, survival may not be their ultimate goal. Deterrence of nuclear terrorism is therefore different from deterrence against states. South Asia is more vulnerable to nuclear terrorism than any other region of the world for many reasons. This article analyzes the possibility of nuclear terrorism and the ways of deterrence against it in the context of South Asia.     

The danger of “hybrid warfare” from a sophisticated adversary: the Russian “hybridity” in the Ukrainian conflict

The term “hybrid warfare” is a new one that the West began to use to explain its failure to cope with asymmetric threats. Focusing on the war on global terrorism, the West temporarily withdrew its attention from traditional adversaries, such as Russia, which has used this gap and has audaciously returned to the stage as a global actor. Until the Russian annexation of the Crimean Peninsula in 2014 and inflaming the Ukrainian crisis, most Western authors attributed “hybrid threats” mostly to non-state actors. But the Ukrainian scenario showed the true face of “hybridity” in the modern battlefield when practised by a powerful state actor. Russian “hybrid warfare” in Ukraine has already been seen as a combination of conventional and unconventional methods, that have been complemented with other instruments of national power – diplomatic, economic and information. The purpose of this article is, through an analysis of the Ukrainian scenario, to demonstrate that although the term “hybrid” is new, the concept itself is old and is a continuation of already seen doctrine from the Cold War era. Although “hybrid threats” can come both from state and non-state actors, the Russian interference in Ukraine is proof that they are especially dangerous for the West if, or when, they are initiated from a traditional, sophisticated adversary that has the capacity to use all forms of warfare.     

Introduction

ABSTRACT

The new nuclear history can make a critical contribution by forcing us to reconsider or reframe the theoretical premises of the concepts we apply to our understanding of the present – and with which we try to navigate the future. It bears on fundamental questions, such as: How should the US manage its alliances? Should it establish a multilateral nuclear policy dialogue in Asia? In what depth should it discuss issues of doctrine and targeting with its Asian allies? What capabilities might reassure European allies in light of current Russian revisionism? Could nuclear war be limited and controlled in an East Asian maritime arena? Do nuclear weapons strengthen an alliance, or do they introduce a divisive bone of contention? Is extended nuclear deterrence (END) stabilizing or is it on the contrary pushing the allies to ask for more? What is the relationship between nuclear and conventional forces in END credibility? How do nuclear alliances contribute to international security and international order? The lessons and insights from these papers, which look at five historical cases of US extended deterrence during the Cold War, should help us think about crucial current issues, and be of use both to historians who want to have a better understanding of the Cold War past and to policymakers who are currently grappling with these issues.     

ESCAPE FROM NUCLEAR DETERRENCE

Since the post-World War II genesis of nuclear deterrence, two presidential initiatives have been presented to deliver humanity from the threat of its failure. The first was the Strategic Defense Initiative (SDI), a constellation of space- and ground-based systems that President Ronald Reagan envisioned would render nuclear weapons “impotent and obsolete.” The second is President Barack Obama's roadmap to “a world without nuclear weapons,” commonly referred to as “Global Zero.” While these proposals appear to have little in common, deeper investigation reveals a number of provocative similarities in motivation and presentation. Moreover, both generated fierce debate, often with ideological overtones, about their strategic desirability and technical feasibility. We use these parallels, as well as prominent dissimilarities, to draw lessons from the SDI experience that can be applied to the debate over Global Zero.     

Deterrence and overseas stability

The use of conventional armed forces in a deterrent role merits close consideration. Instability in weak or failing states can have global ramifications, while efforts to build stability take time. In principle, conventional deterrence can be used to buy the time required for such stabilization efforts. Attempts at deterrence will, however, need to overcome credibility problems stemming from the technical limitations associated with conventional armed forces, and with the likely requirement for multiple external actors to deter multiple intrastate audiences. While deterrence might work under certain circumstances, it will not play as central a role in strategy as it did during the Cold War.     

A Doctrine without Dogma

ABSTRACT

In No Use: Nuclear Weapons and U.S. National Security Policy, Thomas M. Nichols calls for a constructive rethinking about the history of nuclear weapons and the attitudes that have grown up around them. Despite dramatic reductions since the end of the Cold War, the United States still maintains a robust nuclear triad that far exceeds the needs of realistic deterrence in the twenty-first century. Nichols advocates a new strategy of minimum deterrence that includes deep unilateral reductions to the US nuclear arsenal, a no-first-use pledge, withdrawing US tactical nuclear weapons from Europe, and ending extended nuclear deterrence for allies. The weakest part of his argument eschews nuclear retaliation against small nuclear states that attack the United States, opting instead to use only conventional weapons to guarantee regime change. He admits this will entail enormous cost and sacrifice, but cites the “immorality” of retaliating against a smaller power with few targets worthy of nuclear weaponry, which totally ignores the massive underground facilities constructed to shield military facilities in many of these states. Despite this, Nichols's thoughtful approach to post-Cold War deterrence deserves thoughtful consideration.     

Extended Deterrence and National Ambitions: Italy’s Nuclear Policy, 1955–1962

ABSTRACT

Throughout the Cold War, Italy was one of the most steadfast NATO allies in hosting American nuclear weapons on its territory. Such a policy could easily be construed as an example of almost automatic confidence in the US nuclear umbrella, yet only on the surface did extended deterrence appease Italian anxieties about the uncertainties of the American nuclear guarantee. The Italian rationale for accepting a large array of US nuclear weapons did as a matter of fact involve a complex mix of reasons, ranging from trying to ensure that the Italian government would be consulted in the event of a major crisis, to willingness to enhance the country’s profile inside any Western multilateral fora. The paper will investigate this policy by looking at how the Italian government behaved at the height of the NATO nuclear sharing debate, between 1957 and 1962, arguably one of the historical moments in the Cold War when the concept of extended deterrence was most intensely discussed. Drawing up on hitherto classified archival sources as well as on some less-known public ones, the paper will show how Italian diplomats, military leaders and policymakers understood the dangers and political implications of US nuclear policies. It will, hopefully, demonstrate that Italy’s persistent search for a multilateral solution to the nuclearisation of NATO strategy shows that Italy never saw extended deterrence as a solution per se, but only as a temporary means to an end.     

Holding the Bridge in Troubled Times: The Cold War and the Navies of Europe

European navies made a fundamental contribution to the Cold War at sea, ensuring the effectiveness of deterrence even as Soviet naval forces grew to ominous proportions. European fleets were tasked with containing a Soviet attack until US forces could arrive on the scene. Many European navies pursued essential niche capabilities tailored for their own unique maritime environments. Others made important contributions to broader NATO efforts in the high-stakes arenas of sea control, power projection and even nuclear deterrence. Contentious issues did arise, for example concerning burden-sharing, but true to its name, the alliance succeeded collectively in wielding formidable sea power. This paper is based on the premise that the maritime players in the Cold War at sea were by no means restricted to the US and Soviet navies. The navies of Western Europe and Canada had major roles to play as well within the NATO area. They contributed a great deal to the political cohesion crucial to an essentially maritime alliance, and in many cases had a real operational contribution to make as well. What follows, then, is the Cold War at sea from a European point of view.     

Deterring the Undeterrable: Coercion,Denial, and Delegitimization in Counterterrorism

This article argues that deterrence theory can be applied to counterterrorism. Doing so requires broadening the traditional concept of deterrence by punishment, expanding deterrence by denial to include defense, mitigation, and strategic hindrance, and developing deterrence by delegitimization to influence the political, ideological, and religious rationales informing terrorist behavior. In practice, deterring terrorism requires tailoring threats against state and individual facilitators, diffusing the intended consequences of terrorism, and manipulating terrorist self–restraints. When these and other deterrent leverages are applied simultaneously against various actors and processes involved in terrorism, coercion can be achieved.     

The Moral Dimension of “Global Zero”

Regrettably, moral arguments are largely absent from the current debate on nuclear disarmament. Indeed, complementing politico-strategic thinking with ethical categories could significantly strengthen the abolitionist call. To fill the gap, this article analyzes the evolution of the nuclear ethics of the Roman Catholic Church and especially its position on nuclear deterrence. If this strategy was granted interim and strictly conditioned moral acceptance during the Cold War, nuclear deterrence is today increasingly considered ineffective, an obstacle to genuine disarmament, and hence morally unjustifiable. In the new security context, the conditions for the Catholic Church's “interim nuclear ethics” have altered, and nuclear disarmament has become a feasible option and an alternative strategy to deterrence.     

The 1983 Nuclear Crisis – Lessons for Deterrence Theory and Practice

This article distills insights for the scholarship of deterrence by examining the 1983 nuclear crisis – the moment of maximum danger of the late Cold War. Important contributions notwithstanding, our understanding of this episode still has caveats, and a significant pool of theoretical lessons for strategic studies remain to be learned. Utilizing newly available sources, this article suggests an alternative interpretation of Soviet and US conduct. It argues that the then US deterrence strategy almost produced Soviet nuclear overreaction by nearly turning a NATO exercise into a prelude to a preventive Soviet attack. Building on historical findings, this article offers insights about a mechanism for deterrence effectiveness evaluation, recommends establishing a structure responsible for this endeavor, and introduces a new theoretical term to the strategic studies lexicon – a ‘culminating point of deterrence’.     

Deterring ‘Able Archer’: Comments Arising from Adamsky’s ‘Lessons for Deterrence Theory and Practice’

This is a short commentary on Dmitry Adamsky’s recent article ‘The 1983 Nuclear Crisis – Lessons for Deterrence Theory and Practice’. First, it teases out nuances in the relationship between deterrence and strategy and considers deterrence to be both a strategy and an effect. Second, it explores the culminating point of deterrence in theory and considers it untenable, as it does not conform to the logic of, or to any logic analogous to, Clausewitz’s culminating point of victory. Deterrence logically cannot culminate. Moreover, any culminating point of deterrence would ignore why the potential deteree should perceive the actions of his deterrer in such a way as to render strengthened strategies of deterrence counterproductive. It is the deteree who is the only strategic actor to determine whether the deterrer is actually practising a successful strategy of deterrence or not.     

Deterrence in the Gulf War

A recently published collection of captured Iraqi records offers an opportunity to better understand Saddam Hussein's perception of US and Israeli deterrence signals, affording innovative insights into the reasons behind Iraq's restraint from using weapons of mass destruction against Israeli targets during the 1991 Gulf War. This article tests a wide range of suggested hypotheses, and suggests that US and Israeli deterrence played only a minimal role in dissuading Iraqi use of WMD. The article concludes with some thoughts on the practical implications, particularly on the effectiveness of a “no-first-use” nuclear policy.     

Life in the “Gray Zone”: observations for contemporary strategists

The term “Gray Zone” is gaining in popularity as a way of describing contemporary security challenges. This article describes the “short-of-war” strategies – the fait accompli, proxy warfare, and the exploitation of ambiguous deterrence situations, i.e. “salami tactics” – that are captured by the term and offers several explanations for why state and non-state actors are drawn to these strategies. The analysis highlights why defense postures based on deterrence are especially vulnerable to the short-of-war strategies that populate the “Gray Zone.” The article concludes by suggesting how defense officials might adapt defense policies to life in the “Gray Zone.”     

Does Spoiling Work? Assessing the Impact of Spoilers on Civil War Peace Agreements

Scholars and policymakers argue that violent actors – termed ‘spoilers’ – pose a significant threat to civil war peace agreements. Yet existing research, which is overly reliant on single-case studies, has not effectively determined how prevalent spoiling is, or thoroughly examined what its ultimate effects are on peace agreements. This article draws on a newly constructed cross-national dataset of spoiling following 241 civil war peace agreements in the post-Cold War era to analyze spoiling. It finds that spoiling intended to terminate an agreement is not as common as typically assumed, but still plagues a sizeable number of peace agreements. Moreover, most actors who resort to this strategy typically fail in their goals and the agreement is not at risk, despite the high publicity and attention given to these threats. Yet particular types of actors, most notably paramilitaries and state security forces excluded from the agreement, can pose a significant threat to peace.     

Stopping Suicide Attacks: Optimal Strategies and Unintended Consequences

We study the behavior of defense spending in Switzerland over 1975–2001. Our main interest is in determining how neutrality in international affairs (non‐membership in military alliances) affects defense spending. We find that neutrality is associated with a perception of lower levels of external threat; hence it confers economic benefits in the form of a smaller defense burden. However, neutrality does not fully insulate a country from variations in the level of external threat in the global system as perceived by members of military alliances. Swiss defense spending has tracked very closely the spending trends – but at a lower average level – of the United States and other NATO countries. To the extent that post‐Cold War threats, such as international terrorism, materialize primarily in the context of existing security alliances, Swiss military spending patterns observed in 1975–2001 are likely to remain the same in the future.     

PART I: A CRITICAL EXAMINATION OF “THE MYTH OF NUCLEAR DETERRENCE”

Several years ago, Ward Wilson presented in this journal a wide-ranging challenge to what every generation of national security scholars and practitioners since the end of World War II has been taught about nuclear weapons. He asserted that nuclear deterrence amounts to far less than its proponents have claimed and provocatively suggested that nuclear deterrence is a myth. Relying upon both empirical and theoretical objections to nuclear deterrence, he concluded that its failures were clear-cut and indisputable, whereas its successes were speculative. Yet in spite of a flourishing trade in scholarly articles, think tank reports, blog posts, and opinion pieces concerning nuclear deterrence, nobody—including nuclear weapons scholars—has ventured more than a limited critique of Wilson's essay. There are, however, serious shortcomings in Wilson's arguments—deficiencies that make his essay an unpersuasive brief against nuclear deterrence. Wilson's thesis could be correct. His arguments, however, are unlikely to persuade any skeptical members of Congress, upon whom future progress in arms control depends, to reconsider the value they attach to nuclear weapons and nuclear deterrence.