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Email to Colleague Summary: For four decades, relations among the major nuclear powers have been shaped by their common vulnerability, a condition known as mutual assured destruction. But with the US arsenal growing rapidly while Russia's decays and China's stays small, the era of MAD is ending -- and the era of US nuclear primacy has begun. Keir A Lieber, the author of War and the Engineers: The Primacy of Politics Over Technology, is Assistant Professor of Political Science at the University of Notre Dame. Daryl G Press, the author of Calculating Credibility: How Leaders Assess Military Threats, is Associate Professor of Political Science at the University of Pennsylvania.
Nuclear Weapons & Disarmament PRESENT AT THE DESTRUCTION For almost half a century, the world's most powerful nuclear states have been locked in a military stalemate known as mutual assured destruction (MAD). By the early 1960s, the nuclear arsenals of the United States and the Soviet Union had grown so large and sophisticated that neither country could entirely destroy the other's retaliatory force by launching first, even with a surprise attack. Starting a nuclear war was therefore tantamount to committing suicide. During the Cold War, many scholars and policy analysts believed that MAD made the world relatively stable and peaceful because it induced great caution in international politics, discouraged the use of nuclear threats to resolve disputes, and generally restrained the superpowers' behavior. Critics of MAD, however, argued that it prevented not great-power war but the rolling back of the power and influence of a dangerously expansionist and totalitarian Soviet Union. From that perspective, MAD prolonged the life of an evil empire. This debate may now seem like ancient history, but it is actually more relevant than ever -- because the age of MAD is nearing an end. Today, for the first time in almost 50 years, the United States stands on the verge of attaining nuclear primacy. It will probably soon be possible for the United States to destroy the long-range nuclear arsenals of Russia or China with a first strike. This dramatic shift in the nuclear balance of power stems from a series of improvements in the United States' nuclear systems, the precipitous decline of Russia's arsenal, and the glacial pace of modernization of China's nuclear forces. Unless Washington's policies change or Moscow and Beijing take steps to increase the size and readiness of their forces, Russia and China -- and the rest of the world -- will live in the shadow of US nuclear primacy for many years to come. One's views on the implications of this change will depend on one's theoretical perspective. Hawks, who believe that the United States is a benevolent force in the world, will welcome the new nuclear era because they trust that US dominance in both conventional and nuclear weapons will help deter aggression by other countries. For example, as US nuclear primacy grows, China's leaders may act more cautiously on issues such as Taiwan, realizing that their vulnerable nuclear forces will not deter US intervention -- and that Chinese nuclear threats could invite a US strike on Beijing's arsenal. But doves, who oppose using nuclear threats to coerce other states and fear an emboldened and unconstrained United States, will worry. Nuclear primacy might lure Washington into more aggressive behavior, they argue, especially when combined with US dominance in so many other dimensions of national power. Finally, a third group -- owls, who worry about the possibility of inadvertent conflict -- will fret that US nuclear primacy could prompt other nuclear powers to adopt strategic postures, such as by giving control of nuclear weapons to lower-level commanders, that would make an unauthorized nuclear strike more likely -- thereby creating what strategic theorists call "crisis instability." ARSENAL OF A DEMOCRACY For 50 years, the Pentagon's war planners have structured the US nuclear arsenal according to the goal of deterring a nuclear attack on the United States and, if necessary, winning a nuclear war by launching a preemptive strike that would destroy an enemy's nuclear forces. For these purposes, the United States relies on a nuclear triad comprising strategic bombers, intercontinental ballistic missiles (ICBMs), and ballistic-missile-launching submarines (known as SSBNs). The triad reduces the odds that an enemy could destroy all US nuclear forces in a single strike, even in a surprise attack, ensuring that the United States would be able to launch a devastating response. Such retaliation would only have to be able to destroy a large enough portion of the attacker's cities and industry to deter an attack in the first place. The same nuclear triad, however, could be used in an offensive attack against an adversary's nuclear forces. Stealth bombers might slip past enemy radar, submarines could fire their missiles from near the enemy's shore and so give the enemy's leaders almost no time to respond, and highly accurate land-based missiles could destroy even hardened silos that have been reinforced against attack and other targets that require a direct hit. The ability to destroy all of an adversary's nuclear forces, eliminating the possibility of a retaliatory strike, is known as a first-strike capability, or nuclear primacy. The United States derived immense strategic benefits from its nuclear primacy during the early years of the Cold War, in terms of both crisis-bargaining advantages vis-a-vis the Soviet Union (for example, in the case of Berlin in the late 1950s and early 1960s) and planning for war against the Red Army in Europe. If the Soviets had invaded Western Europe in the 1950s, the United States intended to win World War III by immediately launching a massive nuclear strike on the Soviet Union, its Eastern European clients, and its Chinese ally. These plans were not the concoctions of midlevel Pentagon bureaucrats; they were approved by the highest level of the US government. US nuclear primacy waned in the early 1960s, as the Soviets developed the capability to carry out a retaliatory second strike. With this development came the onset of MAD Washington abandoned its strategy of a preemptive nuclear strike, but for the remainder of the Cold War, it struggled to escape MAD and reestablish its nuclear dominance. It expanded its nuclear arsenal, continuously improved the accuracy and the lethality of its weapons aimed at Soviet nuclear arms, targeted Soviet command-and-control systems, invested in missile-defense shields, sent attack submarines to trail Soviet SSBNs, and built increasingly accurate multiwarhead land- and submarine-launched ballistic missiles as well as stealth bombers and stealthy nuclear-armed cruise missiles. Equally unhappy with MAD, the Soviet Union also built a massive arsenal in the hope of gaining nuclear superiority. Neither side came close to gaining a first-strike capability, but it would be a mistake to dismiss the arms race as entirely irrational: both superpowers were well aware of the benefits of nuclear primacy, and neither was willing to risk falling behind. Since the Cold War's end, the US nuclear arsenal has significantly improved. The United States has replaced the ballistic missiles on its submarines with the substantially more accurate Trident II D-5 missiles, many of which carry new, larger-yield warheads. The US Navy has shifted a greater proportion of its SSBNs to the Pacific so that they can patrol near the Chinese coast or in the blind spot of Russia's early warning radar network. The US Air Force has finished equipping its B-52 bombers with nuclear-armed cruise missiles, which are probably invisible to Russian and Chinese air-defense radar. And the air force has also enhanced the avionics on its B-2 stealth bombers to permit them to fly at extremely low altitudes in order to avoid even the most sophisticated radar. Finally, although the air force finished dismantling its highly lethal MX missiles in 2005 to comply with arms control agreements, it is significantly improving its remaining ICBMs by installing the MX's high-yield warheads and...
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