CHINA, INDIA, PAKISTAN
SWABBING THE BLEAKNESS OF SUBCONTINENTAL NUCLEAR INSTABILITY – ANALYSIS
FEBRUARY 10, 2015
By IPCS
By Vijay Shankar*
After the Cuban Missile Crisis in October 1962, it dawned upon President Kennedy and Premier Khrushchev how catastrophically close to nuclear war they had blundered due to a misshapen military-led nuclear policy, a ludicrous nuclear doctrine that believed that a nuclear war could be fought controlled and won. Both leaders sought a change to the nuclear status-quo. As Khrushchev described it, “The two most powerful nations had been squared off against each other, each with its finger on the button.” Kennedy shared this distress, remarking at a White House meeting, “It is insane that two men, sitting on opposite sides of the world, should be able to decide to bring an end to civilisation.” He called for an end to the Cold War. “If we cannot end our differences,” he said, “at least we can help make the world a safe place for diversity.” In a series of private letters, Khrushchev and Kennedy opened a dialogue on banning nuclear testing. Thus began a progression of political moves and agreements that sought to dampen the risk of a nuclear war, contain the proliferation of nuclear weapons, do away with tactical nuclear weapons, limit strategic arms, cut arsenal size and indeed bring stability to nuclear relations. If at all there is a historical lesson to be learned then it is that nuclear risk reduction and stability begins with serious dialogue between leadership.
The Subcontinental Nightmare
If one were to hypothesise what petrifying form a nuclear nightmare may take, then it is a hair trigger, opaque nuclear arsenal that has embraced tactical use under decentralised military control steered by a doctrine seeped in ambiguity and guided by a military strategy that carouses and finds unity with non-State actors. It does not take a great deal of intellectual exertions to declare that this nightmare is upon the subcontinent. The need to bring about an awakening to the dangers of a nuclear conflagration is therefore pressing.
The effect of an enfeebled civilian leadership in Pakistan that is incapable of action to remove the military finger from the nuclear trigger; the active attendance and involvement of jihadists in swaying strategy; technology intrusions brought in by covert means; absence or at best ambiguity in doctrinal underpinnings that make Pakistan’s nuclear posture indecipherable and the alarming reality of ‘intention-to-use’, all in aggregate makes the status-quo untenable. The need for change in the manner in which we transact nuclear business is urgent. Strategic restraint predicated on failsafe controls, verification in a transparent environment, providing logic to size and nature of the arsenal and putting the brakes on the slide to nuclear capriciousness become imperatives to stabilising the deterrent relationship on the subcontinent.
But the catch is, how does one begin a meaningful nuclear dialogue with an emasculated Pakistani civilian establishment that does not control a military which in turn finds no reason to come to terms with a subordinate role? And as Cohen so succinctly put it, “Pakistan will continue to be a state in possession of a uniformed bureaucracy even when civilian governments are perched on the seat of power. Regardless of what may be desirable, the army will continue to set the limits on what is possible in Pakistan.” Add to this is the widely held belief within the army that terror as sanctioned by the Quran (I shall cast terror into the hearts of the infidels: Sura 12) is a legitimate instrument of State power; the nature of the predicament becomes clear.
The Tri-Polar Tangle
A singular feature of the deterrent relationship in the region is its tri-polar character. As is well known today, it is the collusive nature of the Sino-Pak nuclear relationship which created and sustains its nuclear weapons programme. Therefore it is logical to conclude that there exists doctrinal links between the two which permits a duality in China’s nuclear policy; a declared No First Use can readily fall back on Pakistan’s developing First Use capability as far as India is concerned. Such links have made China blind to the dangers of nuclear proliferation as exemplified by the AQ Khan affair.
No scrutiny, of any consequence, of the regional nuclear situation can avoid looking at the internals of Pakistan. The country today represents a very dangerous condition that has been brought about by the precarious recipe that the establishment has brewed in nurturing fundamentalist and terrorist organisations as instruments of their military strategy. The extent to which their security establishment has been infiltrated is suggested by the attacks on PNS Mehran, Kamra air base, Karachi naval harbour and the assassination of the Punjab Governor; while the recent murderous assault on the Army School in Peshawar and the every day terror killings are more symptomatic of the free-run that these elements enjoy across the length and breadth of that country. Such a state of affairs does not inspire any confidence in the likelihood of the nuclear nightmare fading away or the robustness of their nuclear command and control structures to keep it in check.
Failure of the US Af-Pak Policy
As early as 2003 the US set out two major policy goals towards Pakistan, firstly holding it as an indispensable ally in its war in Afghanistan and secondly ending the proliferation of nuclear weapons in and from the region. However, over a decade later, both goals have failed dismally. There are confirmed reports that the Pak military has persistently deceived the US forces while elements within the former either lack the will to combat the insurgency or are actively involved with the jihadists. On the nuclear front, the rapid setting up of the unsafeguarded Khushab series (II, III and IV) nuclear reactors with Chinese collaboration having no other purpose than the production of weapon grade Plutonium, development of tactical nuclear weapons and the uninhibited growth of their arsenal do not in anyway enthuse belief in the US ability to exercise any stewardship over Pakistan’s nuclear stockpile. The inexplicable disappearance of key nuclear scientists who had recorded liaisons with al Qaeda remain alarming episodes that must cause anxieties. With US involvement in the Af-Pak greatly diminished and their focus on nuclear proliferation much sharper, the time is ripe for the US to clamp down on the maverick Pakistani nuclear posture.
Orientation of Sino-Pak Nuclear Collusion
The key to GHQ Rawalpindi’s compliance with rational norms of nuclear behaviour lies in Beijing. And the direction, in which Sino-Pak collusion is headed will to a large extent influence nuclear stability in the region. If the alliance was intended (as it now appears) to nurture a first use capability in order to keep subcontinental nuclear stability on the boil then the scope for achieving lasting stability is that much weakened. However, the current political situation in Pakistan presents a frightening possibility which is not in China’s interest to promote, more so, since Islamic terrorist elements have sworn to obtain nuclear weapons and the politico-ethnic situation in western China remains fragile. This in turn provides an opportunity to the Indian leadership to bring about change in the current ‘tri-polar tangle’.
A Blue Print for Regional Nuclear Stability
Against the reality of conventional war with its limited goals, moderated ends and the unlikelihood of it being outlawed in the foreseeable future, the separation of the conventional from the nuclear is a logical severance. Nuclear weapons are to deter and not for use; intent is the key; coherence and transparency are its basis. These remain the foundational principles that a nuclear weapon state must adhere to. However, given the politics of the region, historical animosities and the persisting dominance of the military in Pakistan, the dangers of adding nuclear malfeasance to military perfidy is more than just a possibility. Stability in this context would then suggest the importance of not only reinforcing assured retaliation to nuclear violence, but at the same time for India to bring about a consensus among both China and the US to compel Pakistan to harmonise with foundational rules of nuclear conduct. India’s current strategic relations with the US and Prime Minister Modi’s impending visit to China provides a timely opportunity to bring an end to the nightmare by swabbing the bleakness of subcontinental nuclear instability.
*Vijay Shankar
Former Commander-in-Chief, Strategic Forces Command of India
SWABBING THE BLEAKNESS OF SUBCONTINENTAL NUCLEAR INSTABILITY – ANALYSIS
FEBRUARY 10, 2015
By IPCS
By Vijay Shankar*
After the Cuban Missile Crisis in October 1962, it dawned upon President Kennedy and Premier Khrushchev how catastrophically close to nuclear war they had blundered due to a misshapen military-led nuclear policy, a ludicrous nuclear doctrine that believed that a nuclear war could be fought controlled and won. Both leaders sought a change to the nuclear status-quo. As Khrushchev described it, “The two most powerful nations had been squared off against each other, each with its finger on the button.” Kennedy shared this distress, remarking at a White House meeting, “It is insane that two men, sitting on opposite sides of the world, should be able to decide to bring an end to civilisation.” He called for an end to the Cold War. “If we cannot end our differences,” he said, “at least we can help make the world a safe place for diversity.” In a series of private letters, Khrushchev and Kennedy opened a dialogue on banning nuclear testing. Thus began a progression of political moves and agreements that sought to dampen the risk of a nuclear war, contain the proliferation of nuclear weapons, do away with tactical nuclear weapons, limit strategic arms, cut arsenal size and indeed bring stability to nuclear relations. If at all there is a historical lesson to be learned then it is that nuclear risk reduction and stability begins with serious dialogue between leadership.
The Subcontinental Nightmare
If one were to hypothesise what petrifying form a nuclear nightmare may take, then it is a hair trigger, opaque nuclear arsenal that has embraced tactical use under decentralised military control steered by a doctrine seeped in ambiguity and guided by a military strategy that carouses and finds unity with non-State actors. It does not take a great deal of intellectual exertions to declare that this nightmare is upon the subcontinent. The need to bring about an awakening to the dangers of a nuclear conflagration is therefore pressing.
The effect of an enfeebled civilian leadership in Pakistan that is incapable of action to remove the military finger from the nuclear trigger; the active attendance and involvement of jihadists in swaying strategy; technology intrusions brought in by covert means; absence or at best ambiguity in doctrinal underpinnings that make Pakistan’s nuclear posture indecipherable and the alarming reality of ‘intention-to-use’, all in aggregate makes the status-quo untenable. The need for change in the manner in which we transact nuclear business is urgent. Strategic restraint predicated on failsafe controls, verification in a transparent environment, providing logic to size and nature of the arsenal and putting the brakes on the slide to nuclear capriciousness become imperatives to stabilising the deterrent relationship on the subcontinent.
But the catch is, how does one begin a meaningful nuclear dialogue with an emasculated Pakistani civilian establishment that does not control a military which in turn finds no reason to come to terms with a subordinate role? And as Cohen so succinctly put it, “Pakistan will continue to be a state in possession of a uniformed bureaucracy even when civilian governments are perched on the seat of power. Regardless of what may be desirable, the army will continue to set the limits on what is possible in Pakistan.” Add to this is the widely held belief within the army that terror as sanctioned by the Quran (I shall cast terror into the hearts of the infidels: Sura 12) is a legitimate instrument of State power; the nature of the predicament becomes clear.
The Tri-Polar Tangle
A singular feature of the deterrent relationship in the region is its tri-polar character. As is well known today, it is the collusive nature of the Sino-Pak nuclear relationship which created and sustains its nuclear weapons programme. Therefore it is logical to conclude that there exists doctrinal links between the two which permits a duality in China’s nuclear policy; a declared No First Use can readily fall back on Pakistan’s developing First Use capability as far as India is concerned. Such links have made China blind to the dangers of nuclear proliferation as exemplified by the AQ Khan affair.
No scrutiny, of any consequence, of the regional nuclear situation can avoid looking at the internals of Pakistan. The country today represents a very dangerous condition that has been brought about by the precarious recipe that the establishment has brewed in nurturing fundamentalist and terrorist organisations as instruments of their military strategy. The extent to which their security establishment has been infiltrated is suggested by the attacks on PNS Mehran, Kamra air base, Karachi naval harbour and the assassination of the Punjab Governor; while the recent murderous assault on the Army School in Peshawar and the every day terror killings are more symptomatic of the free-run that these elements enjoy across the length and breadth of that country. Such a state of affairs does not inspire any confidence in the likelihood of the nuclear nightmare fading away or the robustness of their nuclear command and control structures to keep it in check.
Failure of the US Af-Pak Policy
As early as 2003 the US set out two major policy goals towards Pakistan, firstly holding it as an indispensable ally in its war in Afghanistan and secondly ending the proliferation of nuclear weapons in and from the region. However, over a decade later, both goals have failed dismally. There are confirmed reports that the Pak military has persistently deceived the US forces while elements within the former either lack the will to combat the insurgency or are actively involved with the jihadists. On the nuclear front, the rapid setting up of the unsafeguarded Khushab series (II, III and IV) nuclear reactors with Chinese collaboration having no other purpose than the production of weapon grade Plutonium, development of tactical nuclear weapons and the uninhibited growth of their arsenal do not in anyway enthuse belief in the US ability to exercise any stewardship over Pakistan’s nuclear stockpile. The inexplicable disappearance of key nuclear scientists who had recorded liaisons with al Qaeda remain alarming episodes that must cause anxieties. With US involvement in the Af-Pak greatly diminished and their focus on nuclear proliferation much sharper, the time is ripe for the US to clamp down on the maverick Pakistani nuclear posture.
Orientation of Sino-Pak Nuclear Collusion
The key to GHQ Rawalpindi’s compliance with rational norms of nuclear behaviour lies in Beijing. And the direction, in which Sino-Pak collusion is headed will to a large extent influence nuclear stability in the region. If the alliance was intended (as it now appears) to nurture a first use capability in order to keep subcontinental nuclear stability on the boil then the scope for achieving lasting stability is that much weakened. However, the current political situation in Pakistan presents a frightening possibility which is not in China’s interest to promote, more so, since Islamic terrorist elements have sworn to obtain nuclear weapons and the politico-ethnic situation in western China remains fragile. This in turn provides an opportunity to the Indian leadership to bring about change in the current ‘tri-polar tangle’.
A Blue Print for Regional Nuclear Stability
Against the reality of conventional war with its limited goals, moderated ends and the unlikelihood of it being outlawed in the foreseeable future, the separation of the conventional from the nuclear is a logical severance. Nuclear weapons are to deter and not for use; intent is the key; coherence and transparency are its basis. These remain the foundational principles that a nuclear weapon state must adhere to. However, given the politics of the region, historical animosities and the persisting dominance of the military in Pakistan, the dangers of adding nuclear malfeasance to military perfidy is more than just a possibility. Stability in this context would then suggest the importance of not only reinforcing assured retaliation to nuclear violence, but at the same time for India to bring about a consensus among both China and the US to compel Pakistan to harmonise with foundational rules of nuclear conduct. India’s current strategic relations with the US and Prime Minister Modi’s impending visit to China provides a timely opportunity to bring an end to the nightmare by swabbing the bleakness of subcontinental nuclear instability.
*Vijay Shankar
Former Commander-in-Chief, Strategic Forces Command of India
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