Nuclear Strategy Archives - Texas National Security Review

Rethinking the Bomb: Nuclear Weapons and American Grand Strategy

Nuclear Strategy January 2019

Nuclear weapons have long played a central but often unappreciated role in American grand strategy. In spite of the unimaginable consequences of their use in war, we know far less about how the bomb shapes U.S. national security and world politics than we…

Marching Toward a U.S.-North Korea Summit: The Historical Case for Optimism, Pessimism, and Caution

Nuclear Strategy May 2018

Patrick McEachern

The history of denuclearization efforts on the Korean peninsula gives reason for pessimism, caution, and optimism. Attempting to critically engage that history can help the United States narrow uncertainty, prepare for a long diplomatic process should one…

North Korea Defied the Theoretical Odds: What Can We Learn from its Successful Nuclearization?

Nuclear Strategy February 2018

Nicholas L. Miller, Vipin Narang

How well do the existing theories about nuclear proliferation predict North Korea's successful nuclearization?

I. The Wrong Revolution?

How should nuclear weapons affect U.S. strategy and statecraft? What does the leading theory — the nuclear-revolution school — say about how American grand strategy should be influenced by the bomb? Under the nuclear-revolution framework, assessing the purpose and consequences of the bomb through a grand-strategic lens can make for an awkward fit. After all, grand strategy is about making choices: what means and instruments, including war, states and their leaders select to achieve desired ends in geopolitical competition in international relations. It reflects “a purposeful and coherent set of ideas about what a nation seeks to accomplish in the world, and how it should go about doing so.”[2] Grand strategies vary enormously over time, location, individuals, and regimes. The United States has pursued a variety of grand strategies since its founding, and debate is fierce over what grand strategy it should pursue today and what means it should employ. The nuclear-revolution school argues that the bomb severely constrains and limits — and at times eliminates — the grand-strategic choices that were available to states and statesmen in the past. Robert Jervis, the leading thinker in the nuclear-revolution school, has argued that “[f]orce and the threat of it cannot support foreign policy in the same way that it did in the past.”[3] Historian Lawrence Freedman agrees, suggesting that the notion of a nuclear strategy “is a contradiction in terms.”[4] What is the “nuclear revolution” framework, and what predictions and explanations does it offer? While scholars differ on some aspects,[5] Stephen Walt has nicely defined its broad outlines:

As refined by scholars like [Bernard] Brodie, Thomas Schelling, Glenn Snyder, Robert Jervis, Kenneth Waltz, and Stephen Van Evera, nuclear weapons are said to provide states with the ability to protect their sovereignty and independence not via direct defense but rather through deterrence.

According to the “logic of the ‘nuclear revolution,’ therefore, states with second-strike capabilities were secure against attack and didn’t need to worry very much about their sovereignty or independence.” The nuclear revolution “means that ‘nuclear superiority’ was a meaningless concept. … A handful of survivable weapons makes it very unlikely that another state will attack you directly or try to invade and take over your country.”[6] According to Jervis, the leading scholar in this tradition, nuclear weapons “can kill but not influence.”[7] Nuclear weapons even “eliminate the security dilemma,” the phenomena that many scholars believe drove international conflict for centuries, making cooperation among states more likely.[8] Nor can they be used for much else besides deterrence. As Todd Sechser and Matthew Fuhrmann argue in a recent study, “For all the money spent on atomic bombs, they have bought precious little coercive leverage for states.”[9] [quote id="1"] The nuclear revolution should have had important consequences for proliferation dynamics, nonproliferation policies, and alliances. Joshua Rovner explains that according to the nuclear-revolution view, “if nuclear weapons were great for deterrence but lousy for battle, then Washington should have been sanguine as new countries went nuclear. It might even have been optimistic, since proliferation would, under this theory, lead countries to become cautious.”[10] Even if the United States wanted to stem the spread of nuclear weapons, however, the effort would be futile. According to Kenneth Waltz, “[I]f countries feel insecure and believe that nuclear weapons would make them more secure, America’s policy of opposing the spread of nuclear weapons will not prevail.”[11] Waltz, the most influential international relations theorist of modern times and one of the more extreme advocates of the nuclear-revolution framework, went further still, arguing that nuclear weapons “make alliances obsolete.”[12] The mere presence of the bomb would override the grand-strategic choices made by a particular state or leader. “Nuclear weapons can carry out their deterrent task no matter what other countries do.”[13] The key insight of this framework is that the bomb is a defensive weapon of such powerful force that it transforms strategy and statecraft, constraining the grand-strategic options available to states and leaders before the nuclear age, regardless of a state’s history, geography, culture, or regime type. According to Waltz, “American estimates of what is required for deterrence were absurdly high.” In other words, “not much is required to deter.”[14] Summing up the conventional wisdom among scholars in this tradition, Charles Glaser and Chaim Kauffman argue that the nuclear revolution reveals that “this technology so heavily favors defense that when all the major powers have nuclear weapons variation in other factors becomes relatively unimportant.”[15] According to Stephen Van Evera, “the nuclear revolution gave defenders a large military advantage,” so large that conquest “became virtually impossible.”[16] John Mearsheimer similarly concludes that “there is no question ... the presence of nuclear weapons makes states more cautious about using military force of any kind against each other.”[17] How well did the theory of the nuclear revolution do in predicting American nuclear weapons policy and explaining the role of the bomb in U.S. grand strategy? The framework’s key point — that nuclear weapons made total, thermonuclear war a horrifying absurdity to be avoided at all costs — is of course a profound insight. As the historian John Lewis Gaddis argued during the Cold War, “It seems inescapable that what has really made a difference in inducing this unaccustomed caution has been the workings of the nuclear deterrent.”[18] Yet, the implications of this incontrovertible truth for American grand strategy are both contested and uncertain. Did the United States accept mutual vulnerability with nuclear-armed adversaries, as the theory would have predicted? Was the bomb understood only as a defensive weapon to defend American sovereignty and territorial integrity? Were American leaders nonplussed as other states expressed interest in the bomb, and, even if concerned, did they recognize and accept that there was little they could do to stop proliferation? Did alliances become less important, and was the United States less likely to use force of any kind? Perhaps most critical, did the United States behave like any other state in the system, bowing before the constraints the nuclear revolution imposed on its strategy and statecraft? Taken to its logical end, this school of thought suggests that many states should seek nuclear weapons and that the United States should or could do little to stop other states from pursuing and attaining their own bomb. When building arsenals, the ease of securing a second-strike capability meant that seeking quantitative or qualitative advantages beyond a certain point would be a foolish goal for a state: At best it would be wastefully expensive; at worst, destabilizing and dangerous. According to the theory, strategic stability, both in dyadic competitions and on a broader, horizontal scale, should emerge naturally from the nuclear revolution.[19] Nor should the particular circumstance, history, leadership or regime type, or interests of the nuclearizing state affect the powerful, system-wide effects of these weapons. Or so went the story largely crafted by American academics specializing in security and strategic studies.[20] As Rovner has noted,

If the nuclear revolution affected grand strategy, the United States should have settled for a small arsenal for the sole purpose of deterrence. It would never have sought to integrate nuclear and conventional forces, because nuclear weapons were fundamentally different in that they could never be used. U.S. leaders should have recognized that defenses against nuclear attack were futile, and avoided pouring time and money into such efforts. And they should have managed the process of proliferation so that states, great and regional powers alike, enjoyed the security benefit of a reliable second-strike capability. None of these things happened.[21]

Why not? Exceptional, but Not for the Reasons Many Think The nuclear-revolution framework provides a powerful lens to understand two of the most important aspects of world politics since 1945: the disappearance of great-power war and the non-use of nuclear weapons against adversaries after the United States dropped atomic bombs on Hiroshima and Nagasaki, Japan, in August 1945. It is less helpful in explaining other aspects of U.S. grand strategy in the nuclear age. U.S. behavior and policies diverged from expectations of the nuclear-revolution school in at least three ways. The first involves American leaders’ interest in making nuclear weapons such a core element in U.S. grand strategy. According to the nuclear-revolution school, the most powerful role of nuclear weapons is as “invasion insurance,” or to prevent the conquest of sovereign territory. Whatever the fears raised by the Japanese attack of Pearl Harbor, the United States has faced almost no threat of conquest since the Civil War ended in 1865. A United States without nuclear weapons — in 2019 or in 1955 or 1975 or any other year — faced almost zero threat of conquest. Rarely has a state had less need for the bomb to guarantee its immediate territorial integrity, sovereignty, and security.[22] Yet, no state has invested greater resources in developing and deploying nuclear weapons, nor has any other state relied more heavily on nuclear weapons to implement its grand strategy. The United States has spent astronomical sums on nuclear weapons since 1940, dwarfing the expenditures of other rivals.[23] It plans to spend an additional $1.3 trillion over the next few decades.[24] This is not to suggest that it is surprising the United States pursued and developed the bomb, or even that it pursued a survivable nuclear capability. What is surprising, however, is the central and expensive role that nuclear weapons have played in American grand strategy. Advocates of strategic stability and the nuclear-revolution framework, to say nothing of the historians of American grand strategy before 1950, would likely struggle to explain the United States’ experiments with “nuclear sharing” with its allies, its willingness to use nuclear weapons first in a conflict, and pre-delegating authority to launch the bomb to military commanders in the field.[25] Second, extraordinary new scholarship is making it increasingly clear that the United States never permanently abandoned its efforts to achieve nuclear superiority.[26] For a decade and a half after the United States lost its nuclear monopoly, it strove diligently to build far more deliverable nuclear weapons than any other country.[27] It is true that the United States began to accept quantitative equality with its primary adversary, the Soviet Union, by the late 1960s and 1970s. Two points are in order. First, the United States accepted parity only reluctantly. As James Cameron astutely observed, “Nixon hated MAD, believed its logic was defeatist and naïve, yet he signed agreements that enshrined it at the heart of the United States’ relations with the Soviet Union.”[28] Mired in a disastrous war in Southeast Asia and facing both economic and domestic political constraints on military spending, the United States pulled in its horns. Second, while American policymakers accepted quantitative parity, they still sought qualitative primacy over U.S. adversaries. How did the United States seek this superiority? Concurrent to American policymakers negotiating and accepting the Strategic Arms Limitation Talks (SALT I and SALT II) and the Anti-Ballistic Missile treaties, the U.S. government undertook a massive, extraordinary effort to develop and deploy more sophisticated nuclear weapons and systems to support them. This allowed the United States to exploit its natural advantages over the Soviet Union. As John Mauer has argued,

American leaders raced the Soviets in military technologies where the United States was perceived to enjoy significant advantages, while simultaneously entangling the Soviet Union in an arms control regime that would limit areas of Soviet strength. By combining arms racing and arms control, the United States pursued a holistic offset strategy.[29]

As historians Niccolo Petrelli and Giordana Pulcini reveal, between 1969 and 1976 the Nixon and Ford administrations “actively sought to transcend nuclear parity.”[30] In the years after quantitative parity was accepted, the United States developed and deployed a number of technologically sophisticated and expensive capabilities, including the Pershing II, MX, Trident D-5, as well as cruise missiles. It also invested enormous resources into missile defense; anti-submarine warfare (i.e., targeting and eluding Soviet nuclear submarines); and command, control, communications, and intelligence capabilities.[31] As Austin Long and Brendan Green demonstrate in their path-breaking work, the United States “invested massive resources into intelligence capabilities for a first strike, including successful innovation in tracking submarines and mobile missiles.”[32] These expenditures were oriented toward systems whose characteristics and capabilities, such as speed, stealth, intelligence, and accuracy, were best suited to a nuclear posture that focused on counterforce, damage limitation, and even preemptive uses. In other words, the nuclear forces built in the decades after the SALT and ABM treaties made little sense if the United States had fully embraced the consequences of mutual vulnerability spelled out by the nuclear-revolution school. This is certainly how the Soviet Union perceived these efforts. Because of the “development of American counterforce capabilities,” Soviet leaders “were uncertain they could indefinitely maintain a secure second strike in spite of their strenuous efforts.”[33] [quote id="2"] This interest in maintaining superior nuclear capabilities continued after the Cold War ended.[34] As a 2003 RAND report observed,

The force is larger than it needs to be if deterrence by threat of nuclear retaliation is the sole objective of U.S. nuclear strategy. Even a mildly expanded target base that included selected targets in emerging nuclear powers as well as chemical and biological weapons facilities in a larger set of countries would not necessarily require the sort of force that the United States plans to maintain. What the planned force appears best suited to provide beyond the needs of traditional deterrence is a preemptive counterforce capability against Russia and China. Otherwise, the numbers and the operating procedures simply do not add up.[35]

It has been argued that bureaucratic and organizational politics were the primary drivers of these expensive, risky, and politically polarizing nuclear postures.[36] Organizational and bureaucratic factors no doubt played some role, but the fact that the search for qualitative superiority has spanned decades, encompassing multiple administrations and great shifts in global politics, undermines such interpretations. As Green and Long argue, “In sum, it was international politics, not domestic politics, which killed hopes for nuclear stability.”[37] Why did the United States seek nuclear primacy? This relates to the third point: The United States asked more of its nuclear weapons in its grand strategy than any other nuclear state.[38] Most states seek nuclear weapons to protect themselves from invasion and conquest. This is a scenario the United States has not had to worry about, and even if it did, such protection would not require the massive, sophisticated nuclear forces and related systems the U.S. government built. Instead, the United States employed its nuclear forces to achieve far more ambitious, historically unprecedented goals. From the early 1950s onward, the United States pursued an audacious strategy of relying on its massive nuclear capabilities to both protect far-flung allies from nuclear attack or conventional invasion while also inhibiting the nuclear desires of those same allies. As Green and Long demonstrate, “Successive administrations discovered that the threat of retaliation and the existential risk of nuclear escalation posed by stability doctrines were not a sufficient military solution for their perceived geopolitical challenges.”[39] There has long been a tension between the goal of strategic stability and extending deterrence to America’s allies. As analysts from RAND pointed out in 1989, there was a clash between the “objectives of enhancing first[-]strike stability, on the one hand, and extending deterrence and limiting damage, on the other,” such that the more robust the Soviets believed stability was “the less they might hesitate to precipitate a deep crisis by engaging in serious aggression.”[40] As Earl Ravenal explained in 1982, extending deterrence demanded expensive and potentially destabilizing counterforce capabilities, employed in first-strike strategies. “Such a damage[-]limiting attack, to have its intended effect, must be preemptive.”[41] Permanently extending deterrence while inhibiting proliferation have been cornerstones of American grand strategy for so long it is easy to forget how historically unusual, difficult, and demanding this ambition is. There was, of course, great tension between the goal of a preemptive strategy and strategic stability. Counterforce strategies were not about mutual vulnerability, Ravenal makes clear:

[C]ounterforce and first nuclear strike are mutually dependent. A first strike implies counterforce targeting, since the only initial attack that makes sense is a damage-limiting strike, the destruction of as much of the enemy’s nuclear force as possible. And counterforce targeting, in return, implies a first strike, a preemptive attack, because a second strike against the enemy’s missiles is useless to the extent that one’s missiles would hit empty holes.

As an assistant to Defense Secretary Robert McNamara told a reporter in the mid-1960s, “There could be no such thing as primary retaliation against military targets after an enemy attack. If you’re going to shoot at missiles, you’re talking about first strike.”[42] To be clear, this is not to argue that American leaders seriously contemplated a first strike or even made full-out efforts to acquire meaningful first-strike forces.[43] While American presidents refused to accept qualitative parity with the Soviet Union and pursued expensive and arguably dangerous counterforce options, they also shied away from seeking a full-scale, first-strike capability. One of the great unanswered questions of the nuclear age involves what U.S. leaders thought they were getting with this qualified superiority.[44] Strategies of inhibition required strategic forces that went far beyond mutual vulnerability, but such postures might dangerously undermine strategic stability.[45] One promising explanation is Glenn Kent and David Thaler’s idea of “optimum instability” — developing enough counterforce to make the other side think you might go first in a crisis but without making your adversary think you are eager to do so. “Indeed, one might argue that an optimal amount of first-strike instability is possible: that is, enough to deter the Soviets from generating a major crisis (say, by invading Western Europe), but not enough to allow a major crisis to spiral out of control.”[46] This aggressive posture was pursued, in large measure, to inhibit the development of independent nuclear weapons programs among ostensible allies. The United States went to great lengths to prevent what otherwise might have been a natural development in world politics: the emergence of independent, capable states acquiring their own nuclear weapons. Nuclear weapons would, after all, effectively guarantee their possessors against invasion and conquest for the first time — ever. Rare was the state in history that turned away from an effective military technology or turned over its security to another state. Washington, however, aggressively pursued a wide range of policies to achieve inhibition, including threats of force or abandonment, forward deployed forces, enacting sanctions, selling arms, and encouraging treaties and norms.[47] To achieve its goals of inhibition, the United States often cooperated with its most bitter ideological and geopolitical adversary, the Soviet Union, at the expense of U.S. partners and allies.[48] It is easy to lose sight of how strange, even radical, these grand-strategic choices were when they were developed in the 1950s and the extent to which they remain so today. There is little in the nuclear-revolution theory that can explain the cost, number, and technological sophistication of America’s nuclear weapons systems, nor the aggressive postures in which they were employed. Imagine explaining in the early 20th century that the United States was going to risk a global war that would kill tens of millions of people to defend a conventionally indefensible portion of a city — West Berlin — 100 miles within enemy territory that had no geostrategic value whatsoever. Imagine that everyone would think this was normal (and call it “extended deterrence”). Imagine the weapons and military strategy necessary to convince an adversary that was far closer, that had superior conventional arms, and that, arguably, had more at stake that this was a credible commitment. Try to imagine a parallel in world history for this situation before 1950. Then think about how the strategists who constructed these theories did so based largely on their view of how this story unfolded between 1958 and 1963. The United States, which had little need for nuclear weapons to prevent an invasion or nuclear attack upon its homeland, built, at great expense, the largest and most sophisticated nuclear forces in the world and placed them within forward-leading and often preemptive strategies, backed by military technologies that potentially undermined strategic stability. American leaders worked feverishly, often with adversaries, to prevent the rise of independent nuclear-weapons states — ally, enemy, or neutral — and this remains a cornerstone of U.S. grand strategy. These strategies were exceptional. In one sense, however, nuclear weapons did revolutionize American grand strategy. Before 1949, the United States had no permanent peacetime alliances. America demobilized during peacetime, and it typically pursued slow strategies of attrition when conflict did arise. Congress was widely perceived as the more powerful foreign policy actor during peacetime, while military leaders were afforded little leeway. All of that changed dramatically after the early 1950s, across administrations and shifts in the structure of the international system.[49] Since then, the United States has developed strategies, on semi-permanent alert status, that escalate quickly — even preemptively — with nuclear weapons, and it has concentrated enormous power to initiate war into the hands of the American presidency, all on behalf of defending a sprawling set of countries around the world. Simply put: There was a (thermo-) nuclear revolution that shaped American grand strategy — but it was a much different revolution than the conventional wisdom puts forward.

II. Missing Histories

What is the history of U.S. nuclear weapons and their role in American grand strategy? Careful assessment of what is known — and whether these accounts accurately capture the past — is critical. Most theories and policy analysis are based on assumptions and beliefs about what happened in the past. Unfortunately, less is known about U.S. nuclear history and its role in American grand strategy than is presumed, and what many people do know is often overly simplistic, misleading, or otherwise problematic. Why is this the case? The major works that cover the history of U.S. nuclear weapons policy were, for the most part, written some time ago — before many primary documents were released. These works were often penned not by historians but by policy participants, scholars of strategic and security studies, or analysts outside of the academy. Many of these works are excellent first cuts at history.[50] Most, however, are older, do not engage recent archival finds, and often accept the logic of the nuclear-revolution school to explain U.S. policy. [quote id="3"] What of the discipline of academic history? To be sure, impressive international research has been conducted into various elements of global nuclear history, especially the issues surrounding various state decisions about whether to build a bomb.[51] There are also excellent monographs exploring particular aspects of U.S. nuclear history.[52] Writ large, however, treatment of American nuclear weapons history has been episodic rather than systematic. This is part of a larger, and unfortunate, decades-old trend within history departments. As Hal Brands has argued, “The historical profession in the United States has simply deprioritized the study of statecraft and international relations, at least as those subjects were conventionally understood.”[53] This is especially true in nuclear history, where there is almost no participation by scholarly historians on these contested issues. The academic discipline of history

has largely abandoned studying important issues such as international security and nuclear weapons and is in the midst of a four-decade, slow[-]motion act of collective suicide. There simply is not, nor will there be anytime soon, a critical mass of diplomatic and military historians available to research these important questions or make use of these amazing materials.[54]

Even when scholarly historians do focus on issues of foreign policy or international relations, nuclear questions often get short shrift. Large, synthetic accounts of the Cold War either accept the nuclear-revolution framework or do not break new ground on nuclear issues.[55] Arguably far more is known about the development of U.S. human rights policies, for example, or the role of race and gender in American foreign policy, than about how U.S. decision-makers have discussed and debated the purpose and consequences of the bomb in its relations with the world. Given the extraordinary importance and potential consequences of American nuclear weapons policies, and the massive increases in primary documents available to researchers, the failure of the American historical profession to support and undertake this work is shameful. The Challenge of Nuclear History What would a comprehensive history of U.S. nuclear weapons policy and its role in grand strategy look like? To be fair, undertaking historical work on nuclear issues is particularly difficult. There are the methodological challenges that will be laid out in the next section: assessing historical evidence and making causal claims is difficult when the issues at stake — deterrence, assurance, credibility, and resolve — are unobservable. Speeches and written evidence are often hard to interpret. Top-secret deliberations often reveal American presidents taking contradictory approaches or blowing off steam. U.S. officials’ public pronouncements are frequently intended to convey signals to various audiences and may not represent operational policy. Furthermore, the decisions behind nuclear policies and strategies are some of the government’s most carefully guarded activities, and access to top-secret documents is heavily restricted. While the situation has improved considerably in recent years, archival materials on nuclear policy are notoriously difficult to declassify, and even when they are released, they are often heavily redacted. With important pieces of evidence unavailable, constructing an all-inclusive, seamless narrative remains enormously challenging. A larger question looms: What does it mean to talk about nuclear history? The history of nuclear weapons was once told as the history of the Cold War, and vice-versa. It is now understood that they were not the same. Sometimes nuclear history and Cold War history overlapped, while at other times they moved on independent paths, so much so that it is often hard to determine whether nuclear weapons prevented the bipolar competition from breaking out into war or dangerously exacerbated underlying tensions. A history that conflates Cold War and nuclear dynamics could not, for example, fully explain why the United States cooperated with the Soviet Union to deny their respective allies nuclear weapons.[56] Alliances once ascribed solely to Cold War dynamics, in Europe, the Middle East, and Asia, have not only persisted since that struggle ended but have broadened and deepened in ways that show that nuclear considerations (among other non-Cold War factors) were always at their root. It is essential to disentangle the interconnected but distinct histories of the nuclear age and the geopolitical and ideological rivalry between the superpowers.[57] The Cold War was not, however, the only powerful historical force interacting with, shaping, and being shaped by nuclear history. Decolonization, whose deep roots in imperialism and resistance date back centuries, had an enormous influence — in many cases, more than the Cold War — shaping nuclear decision-making in Great Britain, France, Israel, South Africa, India, and Pakistan, as well as others that decided not to acquire the bomb. Other factors, such as regional dynamics and the effects of globalization, influenced American grand strategy and approach to nuclear weapons. Disentangling competing global histories since the end of World War II is a difficult but necessary task when trying to understand how nuclear weapons influence international relations. There is also the question of periodization and chronology. Is the nuclear age one continuous stream, beginning in August 1945 — if not earlier — and continuing to the present? Or are there sharp breaks dictated by key technological advances such as the development of thermonuclear weapons or intercontinental ballistic missiles? Important political events had profound consequences for nuclear history: the emergence of Soviet nuclear parity and the negotiation of major arms-control treaties, the end of the Cold War, and the collapse of the Soviet Union. Is there such a thing as a second nuclear age, and, if so, how is it different from the first? Defining nuclear history and its scope is difficult; calculating how American grand strategy incorporates and reacts to these shifts even more so. Competing Histories The most important historical challenge is reconciling contending and often contradictory narratives that chronicle the past. This is especially true when trying to understand the American experience with the bomb. There are at least four competing histories of how nuclear weapons influenced U.S. grand strategy and vice-versa: intellectual, rhetorical, operational, and presidential. Assessing which of these strands is most important, and how they interact with each other, is challenging. The first strand is the intellectual history of the United States. For many within the security studies community, the most familiar strand is what might be called the “Wizards of Armageddon” story. In this tale, smart strategists, typically civilians from universities and think tanks like the RAND Corp., wrestled with and explained to the wider world the new realities created by nuclear weapons. In the process, great thinkers such as Bernard Brodie, Thomas Schelling, Albert Wohlstetter, and others made sense of “the unthinkable,” created modern deterrence theory, transformed U.S. policy and grand strategy, and probably prevented World War III. This history is both familiar and comforting — to the extent that nuclear history can be comforting — because it explains the rise of the field of security studies and provides the intellectual architecture for the ideas behind nuclear peace. Because a key part of the stylized telling is how the wizards transformed American policy (and saved the world!), it also suggests that scholarly ideas matter to policymakers. As Marc Trachtenberg points out, however, analysis of the civilian nuclear strategists often suffered from being both “apolitical in substance” and “ahistorical in method.”[58] Bruce Kuklick is even more harsh: The strategists “professed deep understanding” but actually “groped in the dark” and their ideas “had little causal impact.”[59] The problem is that as history, the story of the “Wizards of Armageddon” is, at best, overstated and misleading; at worst, it bears little relation to what actually happened.[60] The second history is rhetorical. Through speeches and published documents, the United States government has used public declarations to indicate its views on nuclear weapons. Prominent examples include Eisenhower administration Secretary of State John Foster Dulles’s “massive retaliation” speech given at the Council on Foreign Relations in 1954, Defense Secretary Robert McNamara’s University of Michigan commencement address in 1962 laying out the flexible-response doctrine and his 1967 doctrine on missile defense, Nixon administration Defense Secretary James Schlesinger’s announcement of a new doctrine in January 1974, or the discussion surrounding President Jimmy Carter’s Presidential Directive 59.[61] Understandably, these public declarations are analyzed to better understand the role of nuclear weapons in American grand strategy. Interpreting policy rhetoric is always challenging, however, especially when nuclear strategy is involved. These speeches and documents were often vehicles to send signals to a variety of audiences — domestic, allied, and adversarial — that involved assurance, reassurance, inhibition, and deterrence missions.[62] Cameron notes that American policymakers frequently played a “double game,” struggling to “balance the demands of presenting a front of strategic coherence” when, behind the scenes, things were far more complicated and uncertain.[63] Many public missions and messages of nuclear strategy were at cross purposes. For example, “the rhetoric of flexible response … was convenient to top U.S. policymakers for reasons that had little to do with enhancing deterrence or winning a nuclear war.”[64] And, as will be discussed further, nuclear rhetoric is often imprecise, unrealistic, and easily drained of meaning. [quote id="4"] The third strand is the operational history of the United States and nuclear weapons. The United States devoted enormous resources to develop certain kinds of nuclear weapons systems, deployed in surprising ways and places, as part of often-extraordinary strategies. It is critical to understand what weapons were developed and why, where and how they were deployed and targeted, and in what strategies. This history is closely guarded, but these operational decisions appear to have been driven by a complex brew of technological factors, alliance relations, and geopolitical competition, as well as bureaucratic and organization interests and domestic political considerations. The intellectual history, as told by the “Wizards of Armageddon,” and the rhetorical history laid out by political leaders often bears little resemblance to the acquisition, deployment, and use plans developed as core parts of U.S. grand strategy. As the historian David Alan Rosenberg argues, “nuclear strategy does not, in reality, consist of concepts or even policy statements. It consists of concrete decisions regarding war plans, budgets, forces, and deployments.”[65] The fourth strand of history is both the most important and the most obscure: presidential history. The structure, laws, and customs of war-making in the United States combined with the unique characteristics of nuclear weapons provides the president extraordinary power and singular responsibilities over nuclear weapons.[66] What a president thought about nuclear weapons — whether and under what circumstances he might threaten or even use nuclear weapons — is of fundamental importance. How can scholars get at these beliefs and how they informed decisions?[67] How did such beliefs change over time — both across and within administrations? How did thinking about nuclear use — or avoiding nuclear use — shape particular decisions about larger issues surrounding U.S. foreign policy and grand strategy? Even when the question of using nuclear weapons was not explicit, it no doubt cast a shadow over multiple policies. Understanding and reconstructing this past is extraordinarily difficult.[68] What is one to make, for example, of Nixon’s loose rhetoric about nuclear use in private, when his actions and policies often revealed quite careful and responsible considerations? Or Dean Acheson’s advice to President John F. Kennedy that he never reveal whether or not he would use nuclear weapons? As former Secretary of Defense Robert McNamara told Rosenberg,

nuclear strategy…is determined by the President’s views and intentions, not by policy or planning documents, or even force structures. The President alone determines how nuclear war will be fought, by virtue of his position in a highly centralized command and control structure.[69]

Reconstructing America’s nuclear past and explaining how it both shaped and was shaped by U.S. grand strategy is a daunting task. It demands integrating all four strands of this history, while deconflicting contradictory elements and assessing what forces and factors are most important. It also requires figuring out how nuclear history interacts with, and is distinct from, other powerful historical forces as varied as regional rivalries, decolonization, and the Cold War. This task is made all the more difficult by the challenges laid out in the next section: Ultimately, the past scholars and analysts are exploring is a history that never happened and thus cannot be observed, analyzed, or measured — the history of thermonuclear war.

III. A Loss for Words?

It should not be surprising that neither international relations theory nor history has satisfactorily explained the role of nuclear weapons in American grand strategy. Two reasons for this are baked into the nature of the nuclear enterprise. First, nuclear weapons present profound and often unsettling moral challenges that can make discussing their role in grand strategy difficult and divisive. It can also cause scholarship to bleed into advocacy. Second, there are profound methodological challenges in trying to understand the role of nuclear weapons. When scholars analyze the role of nuclear weapons in American grand strategy, we are most interested in phenomena that have not occurred, such as thermonuclear war, and policy outcomes that are difficult to observe and measure — such as deterrence, assurance, and resolve — or even to prove operative. These challenges pull in different directions. Analysts understandably hold strong views about nuclear weapons, which drives them to speak with authority and passion about the role and purpose of the bomb in American grand strategy. Yet, many of these deep-seated beliefs are difficult, even impossible, to prove with history or with theory. A debate that should be marked by humility and respect is often polarizing and unproductive. Talking About the Unthinkable The moral problem surrounding nuclear weapons is basic and unsettling. How should one speak about and analyze something that is unthinkable: detonating nuclear weapons against another nation? Use of these weapons would be catastrophic. It would reflect a historic failure of policy and, in many cases, would amount to mass murder. Yet, the threat to use these weapons in a variety of scenarios — including many that do not involve an attack upon the United States or an adversary’s use of nuclear weapons — has been the backbone of American grand strategy for decades. The language used to discuss these dilemmas rarely captures the magnitude of nuclear decision-making, and both academic and policy discourse often drift into a world of insider jargon and toothless acronyms that mask the extraordinary potential consequences of this debate. More than 30 years ago, Carol Cohn highlighted “the elaborate use of abstraction and euphemism, of words so bland that they never forced the speaker or enabled the listener to touch the realities of nuclear holocaust that lay behind the words.”[70] As Michael Quinlan wisely recommended, “thinking about nuclear weapons must be constantly on the alert — the more so in the absence of historical experience to anchor and calibrate discussion — to probe behind words and customary expressions so as to recall the underlying realities.”[71] The colorless language used to describe elements of this strategy and the underlying threat of nuclear confrontation that undergirds it — deterrence, credibility, signaling, escalation — is often eerily disconnected from the realities behind the words. Nina Tannenwald observed a “disconnect between how ordinary people” thought about nuclear weapons and how academic deterrence theory discussed these issues. “These game theoretic analyses, I found, had little to say about issues of revulsion and morality.”[72] Reid Pauly has termed this “rhetorical evaporation” — whereby the words policymakers and scholars use to describe U.S. nuclear policies are drained of meaning.[73] This rhetorical evaporation goes to the heart of a grand-strategic problem the United States has faced since the start of the thermonuclear age: The most important goal of American nuclear weapons policy is to guarantee that they are never used. This policy tautology was bound, over time, to undermine the threat needed to project deterrence and arguably has driven the United States to greater and more strenuous actions to demonstrate the credibility of an action no one really believes it would take. The lack of clarity about language and meaning surrounding the purposes of nuclear weapons has consequences for policy. An October 2016 report by the Center for Strategic and International Studies connected poor morale and dysfunction among American officials responsible for nuclear weapons to the difficulties of clearly communicating what role the bomb served in American grand strategy. Looking over years of nuclear policies, the report pointed out that “a coherent narrative about the fundamental role of U.S. nuclear weapons has not been sufficiently stated and promulgated” to those in the military responsible for nuclear weapons. The report criticized how U.S. nuclear weapons policy “is described in highly sophisticated strategic logic that is not very accessible to the general public or the junior nuclear personnel.” It is filled with “concepts and jargon that are not routinely defined and explained” and focuses on “what nuclear weapons will not do,” supplemented by “descriptions of decline, reduction, and diminishment.”[74] The inability to connect these fearsome weapons to explicit U. S. interests in a convincing manner arguably plays into a culture burdened by accidents and scandal.[75] The lack of clear language to describe a willingness to do the unthinkable, in order to avoid the unthinkable, is only one challenge. It would be impossible to wrestle with these issues without engaging deep moral considerations, a stance which presents difficulties for a purely “social scientific” approach. The lines between analysis and advocacy are often easily — if understandably — blurred. Robert Jervis, the father of the nuclear-revolution framework, admirably has acknowledged that mutual second-strike capabilities may not “have been as secure as I and most others believed” in the 1980s. In May 2018, he explained:

Although I stand behind the arguments I made in The Illogic of American Nuclear Strategy and The Meaning of the Nuclear Revolution, and believe that they represent a significant scholarly contribution, they were also interventions in a fierce political debate. … I was trying to persuade as well as analyze.[76]

This moral and rhetorical challenge is especially pointed for the United States. One can imagine, for example, a state using nuclear weapons as a last resort to repel a more powerful enemy that seeks to conquer its territory. The United States, however, fields nuclear weapons to achieve a variety of goals that fall well below the level of existential, including extending deterrence over allies while inhibiting their nuclear ambitions and seeking coercive advantages during crises with adversaries. These goals require more nuclear weapons in far more aggressive strategies than simply deterring invasion or nuclear attack upon the American homeland. Relying on such profoundly powerful instruments to achieve less-than-existential goals inevitably generates credibility issues. How believable are American nuclear policies? The United States has worked hard to ameliorate these credibility concerns over the years using a variety of tactics, including diplomacy and consultation with allies, nuclear sharing, developing and deploying counterforce delivery capabilities, and a willingness to use nuclear weapons first, in addition to foreign policy and military commitments that would, in a non-nuclear world, be puzzling at best.[77] Given nuclear weapons’ fundamental role in American grand strategy, will these words, commitments, weapons, and strategies remain convincing and credible in years to come? Within decades after the close of World War II — a horrendously violent war of savage conquest and genocide — analysts began to doubt that the United States would use nuclear weapons against a bitter ideological and geopolitical rival committed to its downfall. In today’s far different world, marked by relative peace, stability, and the apparent disappearance of war between the great powers, does anyone — ally or foe — know the circumstances that would prompt the United States to use nuclear weapons? Does Russia or China believe that the United States would use nuclear weapons in response to an attack on Estonia or Taiwan, for example? How and in what ways will that matter for the future of American grand strategy? Measuring the Unobservable, Observing the Immeasurable The second, and bigger, challenge to understanding nuclear weapons and U.S. grand strategy is the methodological conundrum. The most important question surrounding nuclear weapons involves a non-event: understanding why there has never been a thermonuclear war and what lessons can be derived from this non-event to keep this streak going, preferably forever. As John Lewis Gaddis pointed out while the Cold War was still ongoing, “Anyone attempting to understand why there has been no third world war confronts a problem not unlike that of Sherlock Holmes and the dog that did not bark in the night: how does one account for something that did not happen?”[78] What factors start or prevent thermonuclear war are arguable since one has never taken place. Nuclear deterrence and assurance, in all their forms, are ultimately connected to estimates about the causes and likelihood of thermonuclear war that are difficult, if not impossible, to calculate. Social science relies on observations and measurements to identify patterns and causal paths in order to generate theories that drive predictions and inform policies. History requires accumulating, sorting, and making sense of evidence about things that happen in the world. How do you generate reliable theories, histories, and policy recommendations about phenomena for which there are few or no observations or measurements? Analysts have used a variety of plausible proxies, such as how nuclear weapons affect state behavior, both in normal circumstances and crises, but the insights of such approaches have limits. It is hard enough for scholars to find consensus on things that actually happened, such as the origins of World War I.[79] Developing a consensus about a non-event one cannot observe, measure, or assess is obviously harder. [quote id="5"] This challenge plagues any assessment of U.S. nuclear postures and their role in grand strategy. Desired outcomes such as deterrence, extended deterrence, assurance, re-assurance, and credibility are elusive and can be proven only ex post, if at all. As Quinlan notes, “We have no further empirical data about how events may run if nuclear weapons are used, or if nuclear powers come seriously to blows with one another without such use.”[80] Even if deterrence and credibility could, somehow, be observed and measured, they are characteristics and phenomena driven by intangible qualities such as fear, uncertainty, and resolve. These psychological factors depend far more on context and circumstance than the material factors that make up much of international politics. Furthermore, these are human characteristics and it is unclear how to aggregate such feelings from the level of individuals to the policies and behaviors of institutions and states. These challenges affect understanding of other important nuclear behavior, such as why states that our theories would have expected to develop nuclear weapons — a wide-ranging group that might have included Australia, Brazil, Egypt, Indonesia, Japan, Sweden, Switzerland, and Yugoslavia — never developed the bomb. Decisions against doing things — not to detonate a nuclear device during a war, not to acquire nuclear weapons — are difficult to fully assess.[81] Even though many of these phenomena are elusive, analysts intuit that nuclear weapons cast a powerful shadow over foreign policy and grand strategy. Nuclear weapons obviously matter enormously, even if precisely how cannot always be proven. Consider the heated controversy over whether and how nuclear superiority — if it could be properly measured — is important to outcomes in the world. Perhaps the best that can be done is to acknowledge, as Philip Zelikow writes, that “U.S. nuclear superiority mattered. And, at some level, it also didn’t. At times both of these propositions were, at one and the same time, true.”[82] These challenges — linguistic, moral, and methodological — should not prevent the development of rigorous theories and histories of nuclear weapons and American grand strategy. If anything, they invite working harder to surface underlying assumptions and rigorous examination of both the deductive and inductive foundations of these arguments. What is most important here is to better recognize the challenges and barriers to certainty and proceed with humility in the face of daunting questions that have profound policy consequences. As Quinlan notes, the “limitation in our knowledge ought to instill in all who make predictive statements about these issues a degree of humility not always evident.”[83] American grand strategy with nuclear weapons is based on a variety of deeply held assumptions that have rarely been tested and are difficult to prove.

IV. Worse Before It Gets Better

The incomplete understanding of nuclear history and dynamics has consequences for present and future American grand strategy. If these theories and histories are problematic or questionable, it may affect how to evaluate nuclear policies and grand strategies that are chosen in the future. Even if little changed in the contemporary nuclear landscape, it is critical to have a far better, more comprehensive understanding of the past. The circumstances and environment in which nuclear decisions are made will change enormously in the years to come. Four trends stand to be especially consequential. The Return of Geopolitics The first trend is geopolitical. World politics is changing in at least three ways that might influence how nuclear weapons and U.S. grand strategy interact. First, the structure of world politics has shifted from bipolarity during the Cold War to unipolarity in the years since the demise of the Soviet Union to the possible emergence of multi-polarity or even, as Richard Haass has dubbed it, non-polarity. Contemporary analysts and decision-makers have no experience with nuclear dynamics in such a transformed international system. Will states increase their desire for and efforts to acquire the bomb? Would states be more willing to threaten and even use nuclear weapons in a post-bipolar and post-unipolar world? This relates to the second change: the increased geopolitical assertiveness of America’s primary nuclear-armed competitors, China and Russia.[84] Both countries are modernizing their nuclear forces (albeit at different paces and in different ways), and both have made efforts to reexamine their nuclear doctrines. There are dangerous scenarios — such as a crisis over Taiwan, a clash over disputed territories in the South China Sea, or an attack on a NATO member in the Baltics — in which nuclear weapons might plausibly be engaged, either on purpose or inadvertently. Third, U.S. allies and adversaries, as well as neutral countries, will continue to make their own choices about nuclear capabilities based in part on their beliefs about the role of nuclear weapons in American grand strategy. This can take many forms. Changes in the international environment or American grand strategy, perceptions of declining U.S. credibility or power, intensifying regional rivalries, or technological developments might contribute to shifts in the global nuclear landscape. The use of nuclear weapons by regional adversaries — India and Pakistan, for example — might entangle the United States and its nuclear forces in unforeseen and unwelcome ways. Smaller, arguably less responsible countries such as North Korea or Iran could expand their nuclear programs. Geopolitical shifts are taking place today under a U.S. administration whose policies on nuclear weapons and grand strategies can most generously be described as erratic; meanwhile, America’s role in the world, regardless of who is in the White House, is uncertain. Brave New World The second trend affecting nuclear weapons and American grand strategy is technological. As Keir Lieber and Daryl Press argue in their path-breaking research, “Changes in technology … are eroding the foundations of nuclear deterrence.”[85] Three forces in particular are expected to have important consequences for nuclear weapons’ role in American grand strategy: first, changes in nuclear technology and the systems that support nuclear weapons; second, emerging technologies such as cyber and artificial intelligence; and third, the blurring of the once-stark line between nuclear and non-nuclear capabilities. Changes in nuclear technology have had and will continue to have profound consequences for American grand strategy. The nuclear-revolution school often portrays the bomb in a binary fashion: as a technology that, once achieved, needs little change or improvement. In this thinking, what matters is whether or not one possesses a bomb, not what kind one has, where it is held, or how it is delivered or supported. Analysts often forget, however, three crucial characteristics about nuclear weapons. One, as Michael Horowitz has written, “nuclear weapons and missiles are relatively old technologies,” within the reach of many if not most modern states.[86] Next, nuclear weapons are not a static technology but one that has changed and will continue to shift over time. Finally, nuclear bombs are only one aspect of the technology that affects American grand strategy. Enormous changes to intelligence, surveillance, and reconnaissance; command, control, and communications; and the capabilities to deliver nuclear bombs have had and will continue to have profound consequences for nuclear strategy and statecraft. As Lieber and Press point out, synergistic revolutions in computing power and remote sensing make nuclear forces “far more vulnerable than before.”[87] These changes will intensify in the decades to come. The United States has committed to spending more than $1 trillion on modernizing its capabilities — a remarkable commitment in a time of competing demands. Much of this modernization, moreover, focuses on advancing characteristics — accuracy, speed, stealth, and miniaturization — that could make nuclear weapons appear more usable in a crisis. This massive, multi-decade investment began during the previous U.S. administration, despite being seemingly at odds with President Barack Obama’s 2009 pledge “to seek the peace and security of a world without nuclear weapons.”[88] [quote id="6"] In addition, technologies are emerging that may influence and potentially shape the future nuclear environment. Cyber, artificial intelligence, robotics, unmanned aerial vehicles, hypersonic and directed energy, nanotechnology, and as-yet-undeveloped technologies will have unknown effects. A recent RAND study, for example, warned that “artificial intelligence (AI) might portend new capabilities that could spur arms races or increase the likelihood of states escalating to nuclear use — either intentionally or accidentally — during a crisis.”[89] Cyber presents similar challenges. As a recent Chatham House report explained,

During peacetime, offensive cyber activities would create a dilemma for a state as it may not know whether its systems have been the subject of a cyberattack. This unknown could have implications for military decision-making, particularly for decisions affecting nuclear weapons deterrence policies. At times of heightened tension, cyberattacks on nuclear weapons systems could cause an escalation, which results in their use.[90]

These capabilities would have direct bearing on the role and use of nuclear weapons in American grand strategy. Meanwhile, the United States has already developed impressive non-nuclear and non-kinetic weapons capable of carrying out missions that were once the sole provenance of the bomb, including holding an adversary’s nuclear capabilities at risk. This shift has the potential to blur the line between conventional and nuclear war. As Rovner points out, there is an increasing worry that “inadvertent escalation may occur when conventional attacks put the adversary’ s nuclear force at risk.”[91] Caitlin Talmadge argues that American military action could easily be misunderstood by China as a direct threat to its retaliatory capabilities, and so “Chinese nuclear escalation in the event of a conventional war with the United States is a significant risk.”[92] New technologies, combined with how the United States has prosecuted its recent wars, may leave a nuclear adversary uncertain as to whether its nuclear forces are being targeted for elimination, possibly inciting “use it or lose it” pressures. Michael Kofman controversially suggests that, “The Pentagon remains wholly committed to the fantasy of having conventional wars with nuclear states, where they will let us win, accepting defeat without a nuclear exchange.”[93] How should one think about conventional capabilities — or non-kinetic tools — that potentially blunt or eliminate a country’s ability to use its nuclear weapons? How to define and respond to a cyberattack that undermines a country’s secure deterrent yet did not kill or injure a single person? Much existing analysis of the role of nuclear weapons assumes a stark divide between nuclear and non-nuclear conflict, a distinction that may become dangerously cloudy over time. According to Andrew Krepinevich, “The firebreak between conventional and nuclear war is slowly disappearing.”[94] As a recent study explained,

The future of nuclear deterrence is complicated further by the proliferation of conventional military technologies that may undermine traditional modes of escalation management, and as a consequence, nuclear stability. Much attention has already been given to the possible effects of several such technologies, to include stealthy unattended ground sensors, uninhabited aerial vehicles, micro-satellites, and ballistic missile defenses. Comparatively little attention, however, has been given to the possible implications of autonomous systems and artificial intelligence for nuclear stability.[95]

As James Acton perceptively notes, the “emerging interactions between nuclear and nonnuclear weapons … may prove to be a defining risk of the current nuclear age.”[96] Un-usability and Its Consequences The third trend is global public opinion. While the major nuclear powers are modernizing their forces, much of the rest of the world has been clamoring for a reduction — indeed elimination — of nuclear weapons. As Nina Tannenwald explained in her magisterial study, The Nuclear Taboo, outside of the nuclear powers, “nuclear deterrence has not been viewed as a legitimate practice for most of the other states of the world.”[97] This is not new. Since the start of the nuclear age, many non-state actors and governments have lobbied fiercely for nuclear reductions and disarmament. Nearly three decades after the Cold War ended, however, much of the non-nuclear world questions why more progress has not been made toward ridding the world of the bomb. As Heather Williams and Patricia Lewis make clear, “civil society groups and the majority of states have not yet given up on nuclear disarmament.”[98] Pope Francis has declared that “Nuclear deterrence and the threat of mutually assured destruction cannot be the basis for an ethics of fraternity and peaceful coexistence among peoples and states.”[99] In 2017, the U.N. General Assembly passed a treaty prohibiting nuclear weapons. This emerged in large part from the popular global campaign to highlight the humanitarian impact of nuclear weapons. Conversations about nuclear weapons take a much different form in Sydney, Rio de Janeiro, Cape Town, or Vienna than they do in Washington, D.C. It is hard to assess how and to what extent emerging global norms will shape U.S. policies in the years to come. Tannenwald has identified the power of the nuclear taboo on state behavior, and John Mueller has highlighted the rise of powerful norms on issues such as slavery and dueling that could eventually affect not simply nuclear use but also nuclear possession. Norms and public opinion may not be determinative, but they also cannot be ignored. Tannenwald’s work suggests that even in states with nuclear weapons “national leaders do take the notion of world opinion seriously.”[100] There may come a time when the majority of the world sees merely possessing nuclear weapons, let alone using them, as wrongheaded and immoral. This relates to a fourth trend: the consequences for American grand strategy of the decreasing credibility of threats of nuclear use that undergird nuclear deterrence. Short of a “bolt from the blue” nuclear attack by an adversary — and possibly even then — how does one evaluate and assess the credibility of U.S. threats to use nuclear weapons? The probability of an invasion of the United States has not increased. The credibility issues surrounding U.S. nuclear guarantees to allies — a deep challenge even during the Cold War — may increase over time. Tannenwald captures this dynamic well:

Even though US leaders came to believe that nuclear weapons should not really be used, they were not willing to give up nuclear deterrence. But they were caught in the paradox recognized early on by nuclear strategists: making deterrence credible (especially in the face of the threat of mutual assured destruction) required convincing the adversary that the United States would actually use such weapons. As such threats became less credible over time for both deterrence and normative reasons, more numerous and more elaborate strategies were sought in an effort to bolster credibility.[101]

There is conflicting evidence about Americans’ willingness to support the use of nuclear weapons. A report chaired by the former commander of America’s strategic nuclear forces posited that “There is no conceivable situation in the contemporary world” where it would be in either Russia’s or the United States’ “national security interest to initiate a nuclear attack against the other side.”[102] Important studies suggest that Americans would support nuclear use under certain circumstances,[103] while other evidence suggests that in simulated crises it has always been difficult to get approval to use nuclear weapons.[104] If elite wargames designed and played by Thomas Schelling, Henry Kissinger, and others in the 1960s found it extremely difficult to get players to initiate a nuclear war, even when the games were rigged to make nuclear use easier, how likely are scholars today to get anyone to think about using nuclear weapons? That nuclear use is becoming increasingly unthinkable is obviously a good thing. If the bomb is unusable, however, an American grand strategy that relies heavily upon nuclear weapons to achieve many of its key missions may be increasingly untenable. Collectively, these trends should make understanding the role of nuclear weapons in U.S. grand strategy even more difficult in the years to come — and more critical.

V. Resisting the Revolution, or Revolution à la carte

Why is a grand-strategic lens the best way to understand nuclear weapons and their consequences, especially in the case of the United States? And how best to understand the role and purpose of nuclear weapons in American grand strategy? There are two criticisms of using a grand-strategic approach to America’s nuclear weapons policies. First, some are skeptical of the concept of grand strategy, arguing that it falsely conveys a picture of policy coherence.[105] This lack of coherence marks U.S. policy in particular.[106] Second, as discussed above, many believe the transformative power of nuclear weapons reduces and even eliminates the choices that leaders and states can make. The power of nuclear deterrence and the reality of mutual vulnerability remove many of the grand-strategic options and maneuvers available to states in nuclear competition, tying the hands of leaders. While there is some merit to these critiques, they are not ultimately convincing. Although it is unable to overcome all of the methodological, linguistic, and normative challenges surrounding nuclear behavior, grand strategy does recognize an obvious, but often overlooked, point: that nuclear weapons are, first and foremost, tools for states to accomplish their goals in the world. These goals, and the capabilities to achieve them, vary significantly across time, countries, leaders, and circumstance. A grand-strategic frame best captures such variance, as well as the radical uncertainty, risk profiles, trade-offs, moral challenges, and unintended consequences that policymakers face when deciding about an unknowable future.[107] Grand strategy recognizes the “crucible of uncertainty and risk” where decisions are made.[108] [quote id="7"] What insights might a grand-strategic lens provide about the role of nuclear weapons in U.S. policies? Considered broadly, the most important observation is that the United States never fully accepted the consequences of the nuclear revolution. In fact, the United States has, from the start of the nuclear age, worked eagerly to resist and overcome many of the revolutionary consequences of the bomb. It has done so with one overriding goal: to escape vulnerability — to the extent possible — and to obtain and maintain the greatest freedom of action it could to pursue its grand-strategic interests in the world.[109] This should not surprise anyone. Since 1945, the United States has been the leading power in the international system, at times possessing conventional military, economic, and cultural-ideological capabilities far in excess of any other state. Creating strategic stability, maintaining the international status quo, and avoiding war were not the only goals of American grand strategy since 1945, nor were they always the most important objectives. Many times, the United States wanted to avoid being deterred and constrained by the bomb.[110] Nuclear deterrence, remember, looks one way to a status quo, medium-size state that lacks global ambitions and whose primary concern is to avoid being invaded, conquered, or intimidated. It looks different to the most powerful state in the system, one facing no risk of invasion or conquest and whose conventional military and economic strength, absent nuclear deterrence, would allow it great freedom of action (and far less vulnerability) in the world. It is natural that the United States would seek to resist deterrence and get around the constrictions the bomb effectively places on its freedom of action. It was not always obvious, however, how this extremely ambitious goal could be achieved. American policymakers faced fateful choices, and few actions were pre-ordained. In the years after World War II, for example, American leaders could have invested their enormous political capital in pursuing nuclear disarmament or international control of the bomb.[111] At the other extreme, the United States might have launched preventive attacks against the Soviet Union and its nascent nuclear capabilities, while threatening to do the same to any other country that attempted to develop nuclear weapons.[112] Both options were at least discussed and ultimately dismissed. In later years, American leaders could have developed policies that relied less on extended nuclear deterrence by building up conventional forces that matched those of the Soviet Union in Central Europe. Or U.S. policymakers might have encouraged Western European and Asian allies to acquire and develop their own nuclear capabilities, which would have guaranteed their security without an expensive American military commitment that exposed the United States to attack. During the 1970s and 1980s, the United States could have abandoned arms-control efforts and engaged in a quantitative arms race with the Soviet Union; or American presidents might have avoided massive investments in qualitative improvements in nuclear capabilities and simply embraced parity and mutual vulnerability. These were plausible options available to U.S. presidents for how nuclear weapons would be incorporated into grand strategy. How were these choices made, and how should the alternatives be evaluated? This question should be the focus of renewed research by historians and international relations scholars attempting to understand and evaluate America’s choices with the bomb. While one purpose of America’s grand strategy is to overcome the constraints of nuclear deterrence, this goal was pursued in ways that often appear to be in tension, even contradiction, with each other. At times, U.S. leaders pursued what might be labeled “nuclear activism” — the idea that nuclear weapons are crucial instruments of statecraft and that advantages in capabilities versus adversaries were both achievable and would translate into important policy outcomes in the world. This can be seen in America’s persistent and expensive efforts over the past eight decades to develop and deploy sophisticated nuclear systems in forward-leaning strategies on behalf of expansive grand missions like extended deterrence. It can also be seen in the extraordinary U.S. efforts to prevent other states from acquiring nuclear weapons. At other times, the U.S. government advocated forms of “nuclear abstinence.” Strategic stability, mutual vulnerability, and both vertical and horizontal arms control were actively encouraged. The United States went further at points, denigrating the political utility of nuclear weapons and suggesting that the burdens, costs, and dangers of the bomb were not worth it and that the world might be better off free of all nuclear weapons. For much of its nuclear history, however, the United States has put forward both nuclear activism and abstinence, as it does when it seeks strategic nuclear advantages in order to limit the spread of nuclear weapons to its friends and allies. What explains this apparent contradiction? Perhaps the best way to understand these tensions and contradictions — seeking both nuclear primacy and non-proliferation, embracing the first use of nuclear weapons while advocating a world free of them — is to imagine American policymaking as akin to the choice of a switch-hitter in baseball, deciding whether to bat right-handed or left-handed. In the end, it simply chooses the side that offers the best chance for success, defined as reducing U.S. vulnerability and increasing its freedom of action in the world. Sometimes, the choice of whether to bat left or right is obvious, whereas, at other times it has not always been clear which side — nuclear activism or abstinence — would provide the best outcomes for the United States. On the one hand, nuclear weapons provided American leaders with certain advantages. The United States developed nuclear weapons first, and for most of the nuclear age it has possessed superiority, often enormous superiority, in qualitative capabilities — if not always quantity — over any of its competitors, an advantage that is likely to persist. Nuclear weapons have, arguably, allowed the United States to pursue strategies that may have otherwise been too difficult or expensive, such as the defense of Western Europe against the Soviet Union’s large and close armies after World War II. On the other hand, the risks of a nuclearized environment are terrifying. In an international system based on deterrence, the bomb could be used by others to constrain the United States and dilute the effect of other forms of American power. As Jervis pointed out, “One could argue that it is only nuclear weapons that stand between the US and world domination, at least as far as the use and threat of force are concerned.”[113] The United States, obviously, does not reject every aspect of the nuclear revolution. After almost a half-century of murderous conflict and world war during the first half of the 20th century, the stabilizing and peace-inducing qualities of nuclear deterrence were no doubt welcome, including by American leaders. Rather, American policymakers often reject and try to overcome those aspects of nuclear weapons power that they don’t like, while maintaining those that advance their interests. Through nuclear activism and abstinence and everything in between, the United States takes an à la carte view of the nuclear revolution. Did these choices make for wise grand strategy? As explained above, it is difficult to identify and assess the causal effects of nuclear weapons on important outcomes in American foreign policy and world politics. Answering these and similar questions requires engaging counterfactual reasoning while at the same time making assumptions about the purpose and effects of nuclear weapons.[114] These conjectures are almost impossible to test and verify. Perhaps great-power war would have decreased, if not disappeared, in a non-nuclear world, driven out by the increased lethality of war, demographics and interdependence, or shifting norms.[115] Maybe in a non-nuclear world, Berlin’s political status would have been easily resolved or would have been the cause of a third world war.[116] Perhaps it was the expense of the arms race that accelerated Soviet decline, or perhaps the communist state would have collapsed from its internal rot regardless of what nuclear weapons system or strategies the United States did or did not deploy. In a postwar world with a less engaged, more restrained United States, more independent nuclear-weapons states may have emerged, with uncertain consequences. [quote id="8"] The nuclear revolution — and America’s responses to it — also may have transformed other elements of U.S. grand strategy in ways that are underappreciated. The power of nuclear deterrence and the dangers of escalation in the nuclear age may have shifted by who, how, and for how long the United States prepares to fight with conventional weapons. American leaders have been obsessed with demonstrating resolve and credibility since 1945, including pursuing military action in areas of the world where it was difficult to identify vital U.S. interests. Would the United States invest blood and treasure in Southeast Asia, for example, in a world without nuclear weapons? Would it still have fought two costly wars in Iraq? Even where nuclear weapons are not explicitly engaged, they cast a long shadow over grand-strategic decisions. Even with all these caveats, and recognizing numerous self-inflicted wounds and disastrous military interventions, one can imagine grand-strategic choices surrounding nuclear weapons with far worse outcomes. After all, the United States prevailed in its Cold War struggle against the Soviet Union without a nuclear exchange or great-power war. It maintains extraordinary power and influence in a world where the streak on nuclear non-use has continued and where, despite dire predictions to the contrary, the number of nuclear-weapons states remains in the single digits. It is not hard to construct plausible alternative histories with far graver outcomes. That said, it is right to ask whether the United States’ heavy reliance on the bomb in its grand strategy has outlived its utility.

Conclusion

No man ever steps in the same river twice, for it’s not the same river and he’s not the same man. –Heraclitus

"Here we go again." "It’s Groundhog Day with North Korea." "We’ve seen this script before." These sorts of refrains have been common among North Korea watchers — and those who play them on TV — ahead of the summit slated for June 12 in Singapore between North Korea’s leader, Kim Jong Un, and President Donald Trump. After significant brinkmanship over whether the meeting would take place, the on-again, off-again summit looks likely to be held as originally planned. The United States has engaged North Korea in two major denuclearization processes, not to mention separate inter-Korean and multilateral efforts, over the past quarter-century. All have failed to produce the complete, verifiable, irreversible denuclearization that the United States has sought on the Korean Peninsula.[1] Some skeptical of the bilateral summit charge that this history of failure is likely to repeat itself. Meanwhile, optimists suggest that something new in the upcoming process has opened the possibility of a different outcome.[2] History can be a useful guide to avoid repeating mistakes, but events are rarely as neat and tidy as a sound bite seems to suggest. The history of nuclear negotiations between Washington and Pyongyang, as well as multilateral discussions such as the six-party talks, is far more complex than most voices in the media and policy circles acknowledge. This history offers cause for pessimism, optimism, and caution about current prospects for denuclearization.[3]

Pessimism: Denuclearization Is Harder Now Than During Past Efforts

Many of those who are pessimistic about the Trump-Kim summit point to failed efforts to achieve complete, verifiable, irreversible denuclearization and ask why this time should be any different. In one sense, the pessimists are not pessimistic enough. North Korea’s nuclear program has advanced significantly since the last major diplomatic efforts at denuclearization. In the intervening years, the possibility of denuclearization has become even more distant. This section contrasts the situation today with the state of the North Korean nuclear threat when the 1994 Agreed Framework and the joint statement of the 2005 six-party talks were reached. Seen through that lens, contentions that history may repeat itself underestimate the current challenge. In Brief: The Agreed Framework and Six-Party Talks There have been two major diplomatic efforts to eliminate North Korea’s nuclear program. In the early 1990s, North Korea initiated an international crisis by taking provocative steps toward developing a nuclear bomb: removing fuel rods from its five-megawatt plutonium reactor at Yongbyon and initiating its withdrawal from the nuclear Non-Proliferation Treaty, in which North Korea had legally pledged to forego nuclear weapons. The United States engaged Pyongyang in an effort to resolve the crisis, and the two sides signed the Agreed Framework in 1994. In short, North Korea agreed to freeze its nuclear program in exchange for energy and economic assistance, security guarantees, and political promises, including specific efforts toward the normalization of bilateral relations.[4] The Agreed Framework faced challenges in implementation, however, and collapsed in late 2002 and early 2003. The United States, North Korea, South Korea, Japan, China, and Russia initiated the six-party talks later in 2003.[5] Seeking to distinguish between the 1994 framework’s temporary freeze on nuclear production and a more comprehensive and lasting goal, the six countries announced, after two years and four rounds of negotiations, that they “unanimously reaffirmed that the goal of the Six-Party Talks is the verifiable denuclearization of the Korean Peninsula in a peaceful manner.”[6] The 2005 joint statement of those talks laid out the basic principles of a nuclear deal that would be refined more specifically in a pair of implementation agreements two years later. In late 2008, however, the participating countries reached an impasse over important technical verification issues. Whereas in 1994 North Korea had pledged to freeze its nuclear program, in 2005 Pyongyang promised to abandon all nuclear weapons and programs in exchange for energy and economic assistance, security guarantees, normalized diplomatic relations, and negotiations toward a “permanent peace regime.”[7] Although the two sets of negotiations were different in important ways, the broad structure was consistent: North Korea promised to move away from nuclear weapons in exchange for a similar basket of incentives. Denuclearization Today The North Korean nuclear program of 2018 is not the nuclear program of 1994, when Washington and Pyongyang negotiated the Agreed Framework. It is not even the nuclear program of 2005, when the six-party talks produced its joint statement. Since these diplomatic milestones, Pyongyang’s nuclear development and long-range missiles have advanced in major ways, crossing a series of critical technical barriers. These programs have grown significantly more difficult to reverse since earlier denuclearization efforts were underway. Since the 1990s, North Korea’s nuclear weapons program has grown from a theoretical capability to an actual one. North Korea’s first nuclear test occurred in 2006, a year after the joint statement of the six-party talks was released. Before this, the North Korean leadership could not be confident that their efforts to build a nuclear bomb would actually work. Indeed, the North’s first nuclear test produced more of a whimper than a bang. The explosion yielded less than one kiloton, prompting a variety of theories about why it had been a low-yield test. As such, the fundamental challenge for these earlier negotiations was to prevent North Korea from building a nuclear weapon and to persuade Pyongyang to roll back its attendant programs. These efforts resembled something like the more recent nuclear negotiations between Iran and the five permanent members of the U.N. Security Council and Germany in the sense that American negotiators and their allies could capitalize on North Korea’s uncertainty about whether it could succeed in building a bomb and crossing the nuclear-weapons threshold. Today, by contrast, North Korean leader Kim Jong Un controls a nuclear arsenal that has benefited from six tests. His is not a start-up business seeking proof of concept but, rather, an established enterprise with a demonstrated ability to detonate increasingly powerful nuclear weapons. After the 2006 nuclear test produced a lower-than-expected yield, then-leader Kim Jong Il ordered a second test, in 2009, that erased any doubt about North Korea’s basic ability to build and detonate a nuclear weapon.[8] North Korea’s third nuclear test, in 2013, came amid Pyongyang’s pronouncements that the test provided critical information that would help the regime’s effort to miniaturize a nuclear weapon in order to mount it on a missile. The third test may also have utilized uranium in its bomb design. The regime’s previous tests used plutonium, thus, testing weapons using this second path to the bomb expanded its capabilities. North Korea’s fourth test, in 2016, demonstrated the country’s thermonuclear capability for the first time.[9] The fifth and sixth tests, in 2016 and 2017 respectively, sought bigger yields still.[10] Rather than preventing North Korea from crossing the nuclear-weapons threshold, the denuclearization challenge has become much harder: Somehow, the genie must be put back in the bottle. [quote id="1"] Meanwhile, North Korea has steadily advanced its ability to develop, test, and field operational ballistic missiles that can deliver nuclear weapons. Critically, the regime has diversified its ballistic missile force to create a survivable second-strike capability, thereby securing an essential element to deter its primary adversary, the United States.[11] In 1994, North Korea was capable of striking some American bases and allies but not the U.S. homeland. That year — the same year Washington and Pyongyang signed the Agreed Framework — North Korea began producing its Nodong medium-range ballistic missile and fielded the missile the following year. The Nodong could strike South Korea and most of Japan but still not the United States.[12] In 1998, North Korea flight-tested its Taepo Dong-1 prototype, which flew over Japan, rattling the Japanese government in particular and accelerating Tokyo’s cooperation with Washington on missile defense. The flight test ushered in a new round of missile diplomacy between the United States and North Korea. Pyongyang maintained a unilateral moratorium on long-range-missile flight tests for six years, refraining from launching another Taepo Dong rocket until 2006.[13] As the two sides negotiated the Agreed Framework and, later, the joint statement of the six-party talks, North Korea did not have the capability to hit the United States with its missiles. Today, however, North Korea is perilously close to having a demonstrated delivery vehicle to strike the continental United States with nuclear weapons. Since coming to power in December 2011, Kim Jong Un has ordered scores of missile launches, including long- and short-range ballistic missiles. Both long- and short-range ballistic missiles can test technologies used in the development of intercontinental ballistic missiles (ICBMs).[14] In 2017, North Korea conducted three ICBM flight tests. After the third test, Kim Jong Un declared his nuclear deterrent complete.[15] While this claim was probably premature,[16] Kim expressed confidence that his country had attained a complete package of miniaturized nuclear weapons and survivable delivery vehicles that could reach the continental United States.[17] The main components of North Korea’s fissile material production have also shifted significantly. In the leadup to the 1994 Agreed Framework, North Korea had only one fissile material production site: the plutonium program at Yongbyon. The site was known, surveilled, and, in theory, could have been verifiably frozen with reasonable confidence. By the time of the six-party talks, the United States was aware of a nascent and covert North Korean uranium enrichment program that violated its Agreed Framework pledges. The CIA publicly disclosed to Congress its judgment that North Korea had started this program in 2000.[18] Other assessments date the origins of Pyongyang’s uranium enrichment as early as 1996.[19] Regardless of whether Pyongyang started its uranium enrichment program then or in 2000, plutonium production was North Korea’s sole route to the bomb in 1994 and its primary but not exclusive nuclear production capability in 2005. Today, North Korea acquires substantially more fissile material for weapons from its well-established uranium enrichment facilities than it does from its plutonium program. Pyongyang’s uranium program also has more growth potential than its plutonium program in absolute terms. One unclassified research project estimated that by 2020, North Korea’s only five-megawatt reactor at Yongbyon could produce 14 nuclear weapons from plutonium, while two centrifuge plants could produce about 56 weapons from uranium.[20] Put another way, the North Korean uranium enrichment program produces far more fissile material for nuclear weapons today, and its higher annual output is central to the growth of Pyongyang’s arsenal over time. When it comes to trying to negotiate verifiable denuclearization, the distinction between the plutonium and uranium routes to the bomb is critical. In 2010, North Korean officials showed the uranium enrichment facility at Yongbyon to a prominent U.S. nongovernmental delegation. The manner and speed of the facility’s construction suggested strongly that this was not the country’s first enrichment facility.[21] Commercial satellite imagery and other publicly available sources offer no proof of a third enrichment facility, but that should not provide much comfort. It is not clear how many uranium enrichment sites North Korea has because they are easier to hide than their plutonium counterparts. [quote id="2"] This should concern American policymakers as verification was the shoal upon which the six-party talks foundered.[22] During those talks, Washington wanted to conduct soil and nuclear waste samples to verify North Korea’s claims; Pyongyang refused. The “Second Phase Actions for the Implementation of the September 2005 Joint Statement,” agreed to on Oct. 3, 2007, outlined what would be required of North Korea to disable its five-megawatt reactor. The agreement did not explicitly require North Korea to allow these samples to be taken but stipulated that disablement would proceed in a “verifiable” manner.[23] Washington interpreted this to mean it could use sampling to verify Pyongyang’s actions under the second-phase agreement before it proceeded. Pyongyang, however, saw things differently: It wanted to save the issue of sampling for a “third phase” agreement, at which point it could either demand additional concessions and use the sampling issue as a bargaining chip, or not agree to sampling at all.[24] Verification is, of course, central to any sustainable agreement. And the devil is in the details. These kinds of technocratic aspects, which political leaders tend not to ponder, have derailed high-level, multiyear diplomatic initiatives. Diplomatic efforts could again sink over critical technical details if negotiators do not learn from the past. While Kim Jong Il may have hoped during negotiations in the 1990s and again during the six-party talks that his and his father’s decades-long efforts to develop nuclear weapons would someday provide a deterrent against U.S. invasion, his son, Kim Jong Un, has this capability. In the past, North Korea’s nuclear program was aspirational. Today, it is an active part of the country’s national defense. Before, verifying a deal focused primarily on a plutonium program was difficult. Now, the prominence of the uranium program in addition to the plutonium program makes the challenge even greater. It is not the same river.

Caution: New Leaders on Both Sides

In addition to the technical advancements in Pyongyang’s nuclear program since the last two major diplomatic efforts, important political changes have taken place in North Korea and the United States. During the Agreed Framework negotiations and the six-party talks, Kim Jong Il was effectively at the helm. Although North Korea’s founder and charismatic leader, Kim Il Sung, was in power until his death in 1994, and famously held important roles such as receiving former President Jimmy Carter in Pyongyang amid the crisis, Kim Il Sung told a Western reporter that by 1992 his son was running the country.[25] Kim Il Sung tapped his son as his successor in 1980 and gradually shifted power to him. As such, the Agreed Framework and six-party talks were, for North Korea, essentially a Kim Jong Il production. Today, Kim Jong Un is in charge and his personal stamp can be seen on nuclear diplomacy. Kim the youngest differs substantially in ruling style and approach from his father, something that matters greatly for the current round of summits. Kim Jong Il was an introverted micro-manager. Living in the shadow of his larger-than-life father, North Korean founder Kim Il Sung, Kim Jong Il closely controlled process and avoided public appearances. While Kim Il Sung was known for his charisma, Kim Jong Il could not even manage to give the annual new year’s day address. Instead, he instituted a policy of publishing the annual statement as an editorial in three newspapers.[26] Imagine if an American president decided to forego the annual State of the Union address and instead published his views on the White House website. That would be less of a break from past precedent than Kim Jong Il’s decision. Kim Jong Il gave one — or possibly two — extremely short speeches in his entire tenure. He was also absent from public view during the first three years of his formal reign, citing the traditional mourning period after his father’s death. Kim Jong Un is a different kind of leader. He has explicitly modeled himself after his still-revered grandfather rather than his relatively unpopular father.[27] He has brought back the annual new year’s day address. He appears in public with his wife, Ri Sol Ju, something Kim Jong Il had avoided. Kim Jong Un has also resurrected the Korean Workers’ Party, restarting the long-defunct party congresses. Tapes smuggled out of North Korea in the 1980s showed Kim Jong Il privately expressing insecure views of his personal stature that are consistent with his psychological profile.[28] In contrast, Kim Jong Un exudes confidence and has shown himself ready to personally lead the current round of nuclear diplomacy through a series of summits with South Korea, China, and the United States. It is natural and appropriate to look to the history of U.S.-North Korean and multilateral denuclearization efforts for insights into the upcoming talks. First, however, one must consider whether Kim Jong Un is following his father’s playbook. On the critical issue of his ruling style, Kim Jong Un has parted ways with his father. It stands to reason, then,[29] that his priorities and methods concerning nuclear diplomacy may not be a carbon copy of his father’s approach. Kim Jong Un proposed summit diplomacy with Trump, rather than having lower-level officials work toward a possible capstone summit by hashing out the details first. The younger Kim has taken the political risk upon himself and made it more difficult to blame subordinates for possible diplomatic failure. Leaders are always important in high-stakes diplomacy, but the summit approach makes their personality and predilections even more central to the outcome. The United States is only at the head of a long trail of diplomacy, and it is not at all clear that previous journeys foreshadow the current one. On the American side, there is also a new sheriff in town. The United States negotiated the Agreed Framework and the joint statement of the six-party talks under Presidents Bill Clinton and George W. Bush, respectively. Their administrations had different views on diplomacy with North Korea. Senior members of the Bush administration criticized the Agreed Framework negotiated under Clinton, which suffered a number of implementation challenges, including — but not limited to — the revelation of North Korea’s nascent uranium enrichment program.[30] The differences between the two U.S. administrations were stark enough that some insiders dubbed the Bush administration’s approach “ABC — Anything But Clinton.”[31] The Bush administration, however, quickly shifted to its own diplomatic effort with the North Koreans after the final collapse of the Agreed Framework. This time around, there were more seats at the table, different areas of emphasis, and intra-government intrigue,[32] but two things remained constant: the basic parameters of seeking a complete and permanent denuclearization of North Korea, and recognition that this would require some reciprocal and unpopular concessions. With a few notable exceptions, the two U.S. administrations operated — at the most general level — alike. [quote id="3"] Donald Trump fashions himself a new kind of political leader. His engagement in tit-for-tat rhetorical barbs in 2017 — such as when he threatened to bring down “fire and fury”[33] on North Korea, or when he called Kim Jong Un “little rocket man”[34] — marked an outlier for American presidential behavior. Trump’s public comments about military options — including limited military strikes that could not denuclearize North Korea by force but, it was hoped, would push Kim Jong Un back to the negotiating table — prompted substantial criticism about the wisdom of such an approach.[35] Trump quickly shifted gears in 2018, however, by accepting Kim Jong Un’s summit invitation, conveyed through the South Korean president. He has sent Mike Pompeo to Pyongyang twice — first as director of the CIA and secretary of state-designate and then as secretary of state — to advance the summit and secure the release of three unjustly imprisoned Americans.[36] Trump’s policy tools, including carrots, such as peace regime negotiations and sanctions relief, and sticks, including renewed sanctions and military moves, remain roughly the same as those available to his predecessors. But his willingness to meet Kim Jong Un early, to call off the summit, and to recommit to it within days demonstrates the greater element of uncertainty as to how the United States will begin and sustain a diplomatic process with the North Koreans. The men entering the river are different.

Optimism: Allies, Peace Regime, and Learning

Achieving complete, verifiable, and irreversible denuclearization of the Korean Peninsula is a tall order. Getting it on the cheap or for free is taller still. If success is framed in these terms alone, there is little room for optimism. If, however, progress is defined as concretely minimizing the North Korean nuclear threat and moving toward an ultimate goal of denuclearization in such a way that the benefits to national interests outweigh the costs of concessions, then there is room to be optimistic. In short, optimists can argue that a successful agreement is one that leaves the United States and its allies better off than they are in the current situation and on the current trajectory. The U.S.-South Korean combined approach, serious consideration of creating a peace regime, and the real possibility of learning from past agreements together provide reason to be cautiously optimistic about the way forward in U.S.-North Korean diplomacy. The U.S.-South Korean Combined Approach North Korea gains tactical advantage when it can split the United States from its Northeast Asian allies, specifically South Korea. The United States, South Korea, and Japan have many more shared interests and values than differences, but North Korea knows where to find natural cleavages and has traditionally sought to exploit them. North Korea has long favored bilateral diplomacy with the United States in hopes of sidelining South Korea and Japan. Tensions in the U.S.-South Korean alliance have also challenged previous efforts to maintain a united front against North Korea. Han Sung-joo, who served as South Korea’s foreign minister during the Agreed Framework negotiations, noted that then-South Korean President Kim Young-sam wanted to ensure the Americans were not “too soft” on the North Koreans. At the same time, the South Korean president did not want to raise the risk of military conflict that threatened to destroy his capital. The conservative South Korean president, worried about his domestic political support, also needed to assure his people that the United States was closely consulting him at every turn.[37] He wanted to make sure the American approach was neither too hot nor too cold at each stage of negotiations and sought to communicate this to South Koreans. The United States and South Korea were not in lockstep during the Agreed Framework, and Seoul worried about not having direct access to the North Koreans on a matter central to its national security. Kim Young-sam’s successor, Kim Dae-jung, came from the opposite end of the South Korean political spectrum and wholeheartedly endorsed engaging North Korea. Kim Dae-jung made history with the first inter-Korean summit in 2000 — just five months before the election of George W. Bush. Kim Dae-jung’s “Sunshine Policy” sought to change North Korean behavior through unconditional engagement, while Bush settled on a more confrontational approach to North Korea’s objectionable actions. Alliance managers sought to keep the two sides linked, but it remained an ongoing challenge.[38] Differences among allies are inevitable, but the combined approach provides reasons for optimism that this time may be different. Never before has an inter-Korean summit, let alone two, been explicitly set up ahead of a U.S.-North Korea summit. The South Korean presidential office recognizes that it cannot push North Korean denuclearization alone and has sought to influence U.S. engagement with the North Koreans as well as its own. South Korean President Moon Jae-in has met early success with balancing his policy of engaging North Korea while keeping the United States firmly invested in the process. The road is long, and it will become even more difficult. The two sides will face tough choices and trade-offs as the North Koreans begin to articulate their core demands. Nevertheless, Washington and Seoul have gotten off to a solid start. Peace Regime In contrast to previous diplomatic rounds, North Korea’s long-held demand to negotiate a peace treaty to replace the armistice and formally end the Korean War seems to be on the table. The Agreed Framework did not mention a peace regime or peace-treaty negotiations, but it opened the door to four-party talks —among the United States, North Korea, South Korea, and China — on these topics.[39] The Agreed Framework contained U.S. security guarantees to Pyongyang but lacked a specific and concrete quid pro quo on denuclearization and a peace regime. The 2005 joint statement promised to “negotiate a permanent peace regime on the Korean Peninsula at an appropriate separate forum.”[40] The Russians convened the Northeast Asia Peace and Security Mechanism Working Group in Moscow three times. It was one of the five working groups of the six-party talks, but it did not produce concrete outcomes. The United States favored discussing a peace regime after North Korea denuclearized, and Pyongyang did not want to wait.[41] The six-party talks, in practice, produced an agreement for denuclearization in exchange for sanctions relief and aid. Demanding that North Korea denuclearize amounts to asking it to voluntarily relinquish the world’s most powerful weapons. And reminders that its nuclear development violates international law do not move Pyongyang. Likewise, sanctions relief and aid can contribute to North Korea’s economy but would not supplant the security that it believes nuclear weapons provide. Declassified documents from Pyongyang’s socialist-bloc allies demonstrate that, in the 1970s, North Korean leader Kim Il Sung saw peace-treaty negotiations as a means to try to reduce and ultimately end the U.S. military presence on the Korean Peninsula. One of his senior party officials told a friendly foreign delegation in 1972,

The international public sees as just and honest our proposal to conclude a peace treaty between the two Koreas, to withdraw American forces and to reduce the militaries. If we conclude a peace treaty, the Americans would have no reason to stay there.[42]

The intervening four decades have produced varying assessments of North Korea’s intentions and objectives regarding peace regime negotiations. The United States will have to wait for Kim Jong Un’s articulation of his specific demands to adjudicate between competing assessments. One thing, however, is fairly certain: North Korea will seek to supplant its perceived security losses from denuclearization with phased and reciprocal adjustments to the U.S. military presence on and around the Korean Peninsula. How is this good news? Most analysts say that North Korean denuclearization is simply impossible.[43] Kim Jong Un does not want to go the way of Saddam Hussein or Muammar Gaddafi, who, lacking a nuclear deterrent, met their violent deaths after U.S.-led or -supported military operations. The peace regime issue brings to the fore difficult trade-offs and options for the highest-level decisions by elected U.S. leaders and American allies. After hearing the North Korean demands, seeking to negotiate them down, and considering the verifiable implementation measures, the United States and its allies will face a basic decision: Is the trade-off worth it at any stage? Elected leaders may have to consider difficult adjustments to the U.S. military presence on the peninsula, such as the size and scope of military exercises, strategic asset deployment, and the nature of the permanent presence in exchange for verified, late-stage steps toward denuclearization. They may decide that whatever deal is on the table with North Korea is not worth the cost, but an acceptable deal might be laid out as well. Having North Korea’s demands communicated directly from its leader to America’s is superior to wading through the many contrasting assessments of what North Korea really wants. Learning The Trump administration has the benefit of being able to learn from the past. Secretary of State Pompeo has noted repeatedly that he has read the CIA’s history of negotiations with North Korea and vowed not to repeat past mistakes. Unlike the Agreed Framework negotiators, Pompeo has historical points of reference on negotiating with North Korea about its nuclear program. One lesson is the importance of blocking North Korea from pocketing concessions. If Pyongyang can reverse its concessions, the United States and its allies must be able to do the same. This simple lesson has not been followed in earlier negotiations. In 2007, the six parties agreed to “Initial Actions for the Implementation of the Joint Statement,” which laid out in specific terms the first round of reciprocal steps to implement the 2005 agreement. North Korea pledged to disable its Yongbyon reactor, allow International Atomic Energy Agency (IAEA) inspectors to monitor the disablement, and issue a “list of all of its nuclear programs as described in the Joint Statement.” The “parallel” action from the United States included removing North Korea from its list of state sponsors of terrorism, lifting sanctions imposed through the Trading with the Enemy Act, and providing an initial tranche of heavy fuel oil as energy assistance.[44] North Korea’s disablement procedures were temporary, reversible, and intended to elicit further implementation protocols that did indeed come. When the six-party talks failed in 2008 over verification issues, North Korea was in a position to expel IAEA inspectors and move to restart the Yongbyon reactor immediately, though it delayed the restart for several years. After North Korea expelled the inspectors, the United States quickly reimposed by executive order the same authorities found in the Trading with the Enemy Act,[45] and North Korea lost out on deliveries of heavy fuel oil. The United States could not, however, reinstate North Korea on the terrorism list immediately. Once removed, relisting legally required North Korea to commit another terrorist act, and the United States did not reimpose this designation until 2017.[46] While some have argued that the United States could have relisted North Korea earlier under certain legal interpretations, the sort of “snapback” sanctions like those embedded in the Iran nuclear agreement did not exist to discourage North Korea from trying to pocket concessions in the first place. In the absence of an external enforcement mechanism or a broader relationship that keeps other international agreements on track, carefully crafted quid pro quos that have equal degrees of reversibility and importance can help sustain lasting agreements by maintaining the same incentive structure for both sides to continue abiding by the terms. [quote id="4"] Learning from history also requires a balanced understanding of past events. Since writing history is the practice of selecting which past events are significant enough to merit recording, there is always room for author bias. A one-sentence history of North Korea-related nuclear negotiations could simply note that no effort has achieved North Korea’s complete denuclearization. At this most basic level, American and allied negotiators failed to meet their core objective. If one delves more deeply, however, the history quickly becomes more complex. Both nuclear agreements delayed and degraded North Korea’s nuclear program — and a reciprocal price was paid for these concessions. The Agreed Framework verifiably froze for eight years North Korea’s plutonium program, which was its only fissile material production facility at the time of the negotiations. North Korea had three plutonium reactors under construction ahead of the Agreed Framework — one five megawatts, one 50 megawatts, and one 200 megawatts. The smallest of the three was the most developed, but the Agreed Framework effectively put the nail in the coffin of the other two.[47] Some point to a counterfactual to highlight the value of this nuclear agreement: “Experts estimate that without the Agreed Framework, North Korea could have hundreds of nuclear weapons at this point.”[48] But the Agreed Framework was a nuclear agreement, not a plutonium agreement, and North Korea cheated by initiating a uranium enrichment path to the bomb during the framework’s shaky years of implementation. The United States provided North Korea with more than $400 million in energy assistance. South Korea and Japan contributed additional significant sums through the Korean Peninsula Energy Development Organization (KEDO).[49] Concurrently, the United States and its international partners provided humanitarian assistance to North Korea during its late 1990s famine, which was never explicitly linked to the nuclear agreement. Critics charged that the aid propped up the regime amid its greatest existential crisis since the Korean War.[50] Likewise, the six-party talks verifiably shut down North Korea’s plutonium reactor for six years. It did not concretely address, however, the nascent but growing uranium enrichment threat. North Korea also received sanctions relief, some of which was not reversed until last year. Pyongyang was returned its unfrozen assets from a Macau bank and, more significantly, changed its banking practices to limit America’s ability to impose the same type of financial pain using the same tool.[51] Proponents and opponents of engagement argue about what would have happened without these agreements. But counterfactuals are a dangerous analytical tool. It is impossible to know what would have happened if one historical variable had shifted. Would North Korea have more than 100 nuclear weapons today with three functioning plutonium reactors had there been no Agreed Framework? Or would the regime have collapsed under its own weight without the Western aid? It is impossible to say. Everyone has preconceived ideas and biases, but critical readers of this history who seek to genuinely learn from the past should be equally wary of counterfactuals that support or oppose preconceived ideas.

Conclusion

A Brief History of North Korea’s Nuclear Weapons Program

The Early Years: January 1960-January 1992 North Korea’s efforts to acquire nuclear weapons began in the early 1960s, when it requested Soviet and Chinese help with developing a nuclear weapons program. Both declined, but Moscow agreed to train North Korean nuclear scientists and help Pyongyang develop a peaceful nuclear program. After China tested its first nuclear device in October 1964, North Korea approached Beijing with another request for aid in nuclear weapons development, which was again refused. Over the next decade and a half, North Korea continued unsuccessfully to seek nuclear assistance from abroad, including from East Germany, Czechoslovakia, and, again, from the Soviet Union and China. By the end of the 1970s, North Korea decided to pursue a program on its own, with Kim Il Sung ordering the development of a gas-graphite reactor at Yongbyon, which could be used to produce plutonium for nuclear weapons.[3] North Korea deliberately chose a reactor design that used natural uranium and did not require heavy water, thus minimizing dependence on external supplies.[4] Indeed, in describing North Korea’s program more than a decade later, a U.S. official observed, “Of all the nuclear weapons programs in the Third World, this is the most indigenous.”[5] By the mid-1980s, the reactor at Yongbyon was complete. Meanwhile, the United States and Soviet Union began to take notice of North Korea’s suspicious nuclear activities. In 1985, at Washington’s urging, Moscow convinced North Korea to sign the Nuclear Non-Proliferation Treaty (NPT) in exchange for a Soviet agreement to provide power reactors.[6] In September 1986, a Central Intelligence Agency (CIA) report concluded that, “whether [or not] the current nuclear developments in North Korea reflect a nuclear weapons program, they represent a considerable developing capability.” However, the same report noted, “If North Korea intends to pursue a nuclear weapons program, it has made its job much more difficult by signing the NPT.”[7] By 1988, despite having signed the NPT, North Korea still had not reached a safeguards agreement with the International Atomic Energy Agency (IAEA). Meanwhile, signs emerged that Pyongyang might be building a reprocessing facility, which could be used to extract plutonium from spent reactor fuel. This combination of red flags led the CIA to observe that “close scrutiny of the North’s nuclear effort is in order,” even though it admitted, “we have no evidence that North Korea is pursuing a nuclear weapon option.”[8] The following year, after a Washington Post story drew attention to North Korea’s reprocessing facility and potential nuclear weapons program, North Korea publicly denied that it was seeking nuclear weapons.[9] Around this time, the U.S. government concluded that North Korea was indeed pursuing nuclear weapons.[10] That conclusion was bolstered by evidence that North Korea was testing sophisticated conventional explosives at Yongbyon, indicating that Pyongyang could be developing an implosion-type nuclear weapon.[11] Over the next two years, North Korea’s sense of insecurity sharpened, as its Soviet ally collapsed and both Russia and China sought to improve relations with Seoul. Meanwhile, the United States and Russia worked to convince North Korea to accept IAEA safeguards. But Pyongyang demanded the removal of U.S. nuclear weapons from the peninsula along with a negative security assurance as a precondition for accepting any such safeguards.[12] When the IAEA Board passed a resolution in September 1991 calling on North Korea to implement a safeguards agreement, a North Korean official suggested his government would only do so if the U.S. “nuclear threat” dissipated and “if the pressure put upon us is removed.”[13] [quote id="1"] A few weeks later, as part of an initiative to cut the U.S. nuclear arsenal globally as the Cold War wound down, President George H.W. Bush announced that U.S. tactical nuclear weapons would be withdrawn from foreign bases. This led the North Korean government to announce, “If the United States really withdraws its nuclear weapons from South Korea, the way of our signing the nuclear safeguards accord will be opened.”[14] U.S. government officials around this time also were considering an initiative whereby both South and North Korea would be asked to commit to not reprocess spent nuclear fuel, which would help address proliferation risks but would go beyond North Korea’s obligations under the NPT.[15] U.S. nonproliferation efforts finally bore fruit in late 1991, when North Korea agreed to accept IAEA safeguards and reached an agreement with Seoul under which the two countries pledged not to develop nuclear weapons.[16] The leaders of North and South Korea also agreed to a nonaggression pact.[17] The nuclear agreement, formally concluded in January 1992, additionally required the two Koreas to refrain from enrichment, reprocessing, and hosting nuclear weapons, to be verified by bilateral inspections.[18] In the same month, as a gesture of good will toward Pyongyang, Washington and Seoul announced that they would cancel their joint military exercises for the year, leading North Korea to finally sign an IAEA safeguards agreement.[19] The First North Korean Nuclear Crisis: February 1992-May 1994 The momentum toward nonproliferation and improved relations on the Korean Peninsula did not last long. In February of 1992, as North Korea stalled on ratifying the safeguards agreement, U.S. officials warned that Pyongyang might only be a few months away from a rudimentary weapons capability.[20] Meanwhile, U.S. intelligence suggested that North Korea was continuing construction on its reprocessing facility, hardening it against potential attack, and perhaps removing equipment prior to inspections.[21] In the spring of 1992, North Korea finally ratified the safeguards agreement, submitted its declaration of nuclear activities to the IAEA, and allowed inspections, but this only roused further concerns. Inspectors uncovered several inconsistencies in the North Korean declaration, found evidence that equipment had been removed from the reprocessing plant (which North Korea had previously denied existed), and were refused access to several undeclared sites suspected of storing nuclear waste. IAEA analysts also determined that North Korea had likely produced more than the small amounts of plutonium to which it had admitted.[22] Over the course of that summer, the United States, Russia, China, and Europe all pressured North Korea to comply more fully with the IAEA. Meanwhile, China restored diplomatic relations with South Korea and Russia began to loosen ties with Pyongyang.[23] As an October 1992 U.S. Defense Department memo observed, “What is becoming clear is that North Korean non-cooperation is more evident as IAEA becomes more aggressive in its inspections.”[24] In early 1993, with the Clinton administration now in office, the United States and South Korea announced that they would hold their annual military exercise — which had been canceled the year before — making reference to North Korea’s lack of full compliance with the IAEA and North Korea’s failure to agree to a bilateral inspection regime with South Korea. For its part, the IAEA demanded that North Korea allow special inspections of its suspected nuclear waste storage sites, giving Pyongyang 30 days before it would refer the issue to the United Nations Security Council (UNSC).[25] In March, as the military exercise began, North Korea declared it would withdraw from the NPT in 90 days, leading the IAEA Board of Governors to turn over the issue to the UNSC. After China signaled it would not support sanctions against North Korea, the United States again turned to diplomacy, offering to hold talks with Pyongyang on a range of issues — including military exercises, security assurances, and nuclear inspections — if it would be accommodating on the nonproliferation issue.[26] Although China opposed North Korea’s acquisition of nuclear weapons, it feared that strong sanctions might cause the regime to collapse, leading to a refugee crisis on its borders.[27] Over the summer of 1993, talks with the United States led North Korea to suspend its NPT withdrawal. The United States agreed to help North Korea acquire light-water power reactors in exchange for North Korea’s cooperation with inspections.[28] By the end of the year, however, North Korea was again dragging its feet on inspections, seeking a broader grand bargain with the United States as its price for cooperation.[29] At the same time, U.S. officials concluded that North Korea may have already acquired enough plutonium for a nuclear device,[30] causing the United States to try to line up support for sanctions at the United Nations, an effort again obstructed by China.[31] After North Korea agreed to allow new IAEA inspections in March 1994, the United States and South Korea announced that they would suspend their joint military exercises and hold additional talks with Pyongyang.[32] But North Korea blocked inspectors from visiting parts of its reprocessing facility at Yongbyon, leading the IAEA to pull out its team.[33] This, in turn, led Washington to cancel scheduled talks with North Korea, announce that it would indeed hold its military exercise with South Korea, and begin reinforcing its military posture in the region, including moving Patriot missile batteries to South Korea.[34] With North Korea warning that the peninsula was “on the brink of war,” China again signaled opposition to U.N. sanctions.[35] Soon thereafter, Secretary of Defense William Perry publicly stated that a military strike was a possibility if diplomacy and sanctions failed.[36] After another U.S. negotiation attempt failed, North Korea began unloading spent fuel rods from its Yongbyon reactor, laying the groundwork for the separation of additional plutonium. In June, IAEA Director Hans Blix declared that the agency had permanently lost the capability to verify whether North Korea had diverted nuclear materials for use in a weapons program. As tensions continued to rise, the United States proposed an arms embargo against North Korea at the United Nations, while both South and North Korea prepared for possible military conflict.[37] The Agreed Framework and its Demise: June 1994-March 2003 The North Korean nuclear crisis was only defused when former President Jimmy Carter traveled to North Korea in June and met with Kim Il Sung. Carter identified a potential bargain that would involve the United States agreeing to hold high-level talks with Pyongyang in exchange for a North Korean commitment to allow IAEA inspections, to not refuel its reactor, and to refrain from further reprocessing of spent fuel.[38] A few weeks later, Kim Il Sung died and was succeeded by his son, Kim Jong Il, who finished the nuclear negotiations his father had started.[39] In October 1994, after several months of negotiations, the United States and North Korea concluded the Agreed Framework. The deal required Pyongyang to freeze operation of its nuclear facilities at Yongbyon, agree to inspections, remain in the NPT, move toward implementation of the 1992 denuclearization pact with South Korea, and not reprocess any more spent fuel. In exchange, Washington agreed to provide North Korea with heavy oil, to help it acquire two light-water power reactors, and to move toward broader improvements in relations, including increased diplomatic contacts, removal of sanctions, a negative security assurance, and, ultimately, normalization of relations.[40] By the late 1990s, however, the Agreed Framework had run into difficulties. Partly due to congressional opposition, the United States was behind in delivering the promised benefits to North Korea.[41] In particular, the United States was late in starting construction on the light-water reactors and had been repeatedly late in providing oil. It also had lifted few sanctions and had maintained North Korea on the list of state sponsors of terror. Meanwhile, there were no substantial moves toward normalization.[42] Then, in 1998, the United States detected the construction of a large underground complex in North Korea, which officials worried might be a covert nuclear site.[43] That same year, North Korea tested a new medium-range ballistic missile, the Taepodong-1, firing it over Japan and into the sea.[44] The test was especially concerning because it indicated that North Korea would soon have the ability to target all of Japan.[45] Washington responded by threatening to scuttle the Agreed Framework, leading North Korea to allow an inspection of the underground site in question. Although no evidence of nuclear activity was found, U.S. intelligence soon began to notice indications that North Korea was procuring components for an enrichment program, possibly with aid from Pakistan.[46] Indeed, around this time, North Korea began receiving assistance in enrichment from the AQ Khan network.[47] Despite these challenges, a few signs of cooperation emerged at the tail end of the Clinton administration. Clinton put former Secretary of Defense William Perry in charge of coordinating North Korea policy, who worked toward renewed cooperation.[48] Instead of confronting North Korea over its rudimentary enrichment program and threatening to pull out of the Agreed Framework, the Clinton administration decided to pursue additional negotiated agreements. After all, North Korea had technically been complying with its obligations under the Agreed Framework, which focused on its plutonium program — a far bigger proliferation threat than its nascent enrichment program at the time.[49] In late 1999, Pyongyang agreed to a missile test moratorium in exchange for the easing of U.S. economic sanctions,[50] and in late 2000, the United States and Pyongyang held a series of high-level meetings, including a trip by Secretary of State Madeleine Albright to North Korea to discuss the missile issue.[51] In December 2000, with his administration’s time running short, President Clinton decided to pause the negotiations, putting the ball in the court of the incoming George W. Bush administration.[52] [quote id="2"] The Bush administration, opposed to a policy of accommodation toward North Korea, initially halted negotiations and insisted on harsher terms, including broader inspection rights and limits on North Korea’s conventional force posture.[53] In October 2002, after the 9/11 attacks and North Korea’s inclusion in the Bush administration’s “Axis of Evil,” the United States accused North Korea of running a secret uranium enrichment program. Recriminations and threats between the two sides soon caused the Agreed Framework to break down, leading North Korea to kick out inspectors, withdraw from the NPT, and restart nuclear activities at Yongbyon.[54] The Bush administration, for its part, cut off oil shipments and suspended construction on light-water reactors in North Korea.[55] North Korean officials began citing U.S. military actions in Yugoslavia, Afghanistan, and Iraq as justifying their need to develop nuclear weapons. Indeed, there are indications that Kim Jong Il was seriously concerned about the prospect of U.S. military action in 2003.[56] Why did the Agreed Framework break down? It seems reasonable to conclude that both sides bear some of the fault. Although North Korea clearly violated at least the spirit of the agreement by starting a secret enrichment program, it is also clear that the United States was not following through on its own obligations. The key problem, as Siegfried Hecker points out, was that “Washington saw the Agreed Framework primarily as a nonproliferation agreement,” while North Korea “viewed the political provisions of the Agreed Framework, which called for both sides to move toward full normalization of political and economic relations, to be the heart of the pact.”[57] This fundamental asymmetry in how the Agreed Framework was understood may help explain both the failure of the United States to pursue broader improvements in relations in a timely fashion, as well as the North Korean decision to pursue an enrichment capability when the Agreed Framework was not playing out as it had envisioned. It also suggests that a desire for improved relations with Washington has been an important motivation for North Korean decision-makers, which perhaps implies that “carrots” are as or more important than “sticks,” in dealing with Pyongyang, a point we return to below. Crossing the Finish Line: April 2003-December 2017 Despite withdrawing from the NPT, North Korea continued to seek economic, diplomatic, and security benefits in exchange for limiting its program, threatening to test a nuclear device or export nuclear materials if its demands were not met.[58] While the Bush administration would not agree to these demands, it did begin negotiations with Pyongyang in the context of the Six-Party Talks, beginning in August 2003 and continuing until 2009. These talks were organized and hosted by China and also included South Korea, Japan, and Russia.[59] At the end of 2004, the IAEA Director concluded that North Korea likely possessed enough plutonium for four to six bombs.[60] The following year, U.S. intelligence detected the construction of a tunnel that could be used for a nuclear test, while Pyongyang continued to demand concessions from the United States, including the provision of power reactors, which had been promised in the Agreed Framework.[61] In September 2005, during the fourth round of the Six-Party Talks, North Korea committed in principle to denuclearization in exchange for political and economic concessions.[62] Nevertheless, despite this progress, the United States imposed sanctions on entities involved in North Korean weapons of mass destruction (WMD) programs and levied an array of financial sanctions intended to cut down on Pyongyang’s illicit economic activities.[63] In July of 2006, with the Six-Party Talks on hold due to North Korean opposition to America’s sanctions policy, Pyongyang tested six missiles, leading the UNSC to impose sanctions banning missile-related trade with North Korea.[64] In early October, North Korea warned it would soon conduct its first nuclear test, citing U.S. hostility and sanctions as justification.[65] A few days later, despite international warnings, North Korea conducted its first nuclear test, although the low yield suggests the device did not work as intended, measuring less than one kiloton.[66] The UNSC responded by imposing new sanctions on North Korea, covering trade in armaments and luxury goods, although provisions allowing for the inspection of North Korean cargo were weakened by Russian and Chinese opposition.[67] Soon thereafter, at Chinese prodding, Pyongyang announced it would return to the negotiating table.[68] In February 2007, an agreement was reached by the six negotiating parties, which called on North Korea to freeze its plutonium program and accept inspections at Yongbyon in exchange for the lifting of certain U.S. sanctions, the provision of fuel oil, economic aid, Washington taking North Korea off its list of state sponsors of terrorism, and movement toward normalization of relations with the United States.[69] After North Korea began to receive sanctions relief, it started to implement its side of the deal in the summer of 2007. The following summer, the Bush administration further eased sanctions, but stalled on removing North Korea’s designation as a state sponsor of terrorism.[70] In September, North Korea blocked IAEA inspectors from monitoring Yongbyon, displeased that the United States had not yet delivered some of the promised benefits.[71] After a deal was struck on verification measures the following month in exchange for North Korea’s removal from the state-sponsor-of-terrorism list, Pyongyang backtracked on the agreement, leading the United States to suspend the provision of fuel.[72] [quote id="6"] Tensions continued after the Obama administration entered the White House in 2009, with North Korea testing a Taepodong-2 missile in April of that year, which led the UNSC to tighten the enforcement of missile sanctions. North Korea responded by escalating the situation further, kicking out inspectors, pulling out of negotiations, and warning it would resume its nuclear program.[73] On May 25, 2009, North Korea conducted its second nuclear test, with a yield estimated between two and eight kilotons, leading the UNSC to pass additional sanctions, including a wider arms embargo and tighter financial restrictions.[74] The following year, Pyongyang revealed a centrifuge enrichment plant at Yongbyon, which could allow it to produce highly-enriched uranium for nuclear weapons.[75] North Korea also committed two armed provocations in 2010, sinking a South Korean vessel and shelling the South Korean island of Yeonpyeong.[76] For the duration of its time in office, the Obama administration adopted a policy of “strategic patience” toward Pyongyang, increasing the diplomatic and economic pressure on North Korea in an effort to convince the regime to return to the negotiating table while hoping for a change in regime orientation. After Kim Jong Un succeeded his father in December 2011, the United States and North Korea reached the short-lived Leap Day Agreement in February 2012, whereby North Korea temporarily limited its nuclear and missile programs in exchange for economic aid, a deal that Pyongyang soon violated. From this point onward, North Korea declined to seriously negotiate, focusing instead on building up its nuclear and missile capabilities.[77] This uncompromising North Korean posture has continued under the Trump administration, which has adopted a strategy of both sanctions and threats of preventive military force.[78] Between 2010 and 2017, North Korea conducted four nuclear tests (one in 2013, two in 2016, and one in 2017). The most recent test, in September 2017, is estimated to have well exceeded 100 kilotons in yield, suggesting North Korea has developed a thermonuclear or boosted fission device.[79] During the same period, North Korea conducted more than 80 missile tests, including several that demonstrate the country’s ICBM capability, putting the U.S. homeland within striking distance.[80] In 2017, the Defense Intelligence Agency estimated that North Korea may possess as many as 60 nuclear weapons.[81] North Korea achieved this impressive progress in its nuclear and missile programs despite steadily increasing international sanctions pressure, including six rounds of U.N. sanctions and gradually escalating U.S. sanctions.[82] The most recent U.N. sanctions, passed in August and September 2017, prohibited the import of North Korean coal, iron, lead, seafood, and textiles, and limited North Korea’s ability to buy oil and refined petroleum.[83] Yet these stronger measures have almost certainly come too late — no country has ever given up an indigenously developed nuclear arsenal of this size and sophistication.

How Did Academic Theories Perform?

Why North Korea pursued nuclear weapons is hardly a puzzle. The country finds itself in one of the most dangerous security environments in the world, facing a conventionally superior, nuclear-armed American-South Korean alliance on its borders. Since the end of the Korean War, which ended in armistice and not a peace agreement, both the North and the South have openly called for reunification. The pursuit of nuclear weapons — if it were successful — would provide North Korea with, at the very least, invasion insurance. This is not to say that there are not reinforcing domestic political motivations. Nuclear weapons have become a symbol of the Kim regime’s legitimacy and power. North Korea’s nuclear program also makes it far more relevant in global affairs than it otherwise would be, giving it a kind of status. But the primary motivation is security, to deter against a conventional invasion by the United States and efforts by South Korea to reunify the Korean Peninsula on Western terms. [84] It is somewhat surprising, then, that North Korea’s pursuit of nuclear weapons only popped on the radar screen of the United States intelligence community in the late 1980s. In 1982, a CIA report analyzing the next decade of nuclear proliferation concluded that, despite interest in reactors, “we have no basis for believing that the North Koreans have either the facilities or materials necessary to develop and test nuclear weapons.”[85] By the mid-1980s, however, North Korea’s development of a nuclear reactor started raising concern that Pyongyang might be pursuing nuclear weapons, though the intelligence community still doubted that North Korea would risk nuclear pursuit given its vulnerability and the prospect of reactive South Korean proliferation.[86] Twenty years later, North Korea would test its first fission device. Thirty years later, North Korea would undeniably become the world’s 10th nuclear weapons power. Few theories of nuclear proliferation, if any, gave North Korea a chance of reaching that milestone. Below, we catalog how academic theories fare in predicting North Korea’s chances of successfully acquiring nuclear weapons. To be clear, we focus on theories that purport to explain the acquisition of nuclear weapons (or lack thereof), as opposed to the related literature on why states pursue nuclear weapons. Moreover, we limit our discussion to theories that are intended to apply generally to all countries, as well as theories that are intended to apply to specifically to countries like North Korea. In other words, these are fair tests of the theories under consideration; we are applying the theories to a case in which they are intended to apply. [quote id="3"] Realist theories on nuclear proliferation assume that states acquire nuclear weapons for security purposes. Indeed, quantitative studies have found that states in enduring rivalries and with more military disputes are more likely to acquire nuclear weapons.[87] In their most extreme form, realist theories argue that if a state has a strong enough security imperative, nothing can stop them from acquiring the bomb. According to Kenneth Waltz, for example, “no country has been able to prevent other countries from going nuclear if they were determined to do so.”[88] Yet there is something fundamentally unsatisfying about this argument, since it is impossible to measure a state’s level of determination with any degree of certainty, thus rendering the theory tautological. If a state does acquire nuclear capabilities, it was really determined; if it does not, it must not have been very motivated. Moreover, there are many countries in highly threatening security environments that have pursued and not acquired the bomb, including South Korea, Taiwan, West Germany, Iraq, and Iran. The most complete realist model for what states might successfully acquire nuclear weapons is offered by Alexandre Debs and Nuno Monteiro.[89] They argue that states must have both a willingness and opportunity to proliferate — that means they need a security motivation to proliferate, but the breathing room to do so without facing preventive war (or the credible threat of war) from an adversary. States without reliable allies will, therefore, be more willing to pursue nuclear weapons. This is where Debs and Monteiro place North Korea. They write:

Taking stock, our strategic theory of proliferation accounts for North Korea’s nuclearization. Pyongyang’s security concerns vis-à-vis the South and the United States, combined with the absence of a reliable ally since at least the end of the Cold War, account for Korea’s willingness to proliferate. Its ability to inflict high costs on its adversaries using conventional weaponry deterred counterproliferation military action, granting North Korea the opportunity to become, as of this date, the latest state to have built the bomb.[90]

At first glance, this appears to be a compelling argument; North Korea was strongly motivated by its security predicament to pursue nuclear weapons and was able to do so because it could deter counterproliferation efforts with its conventional threat to Seoul. Yet there are a couple problems with this argument. First, there are a variety of states with similar security motivations, but which failed to successfully acquire the bomb, for example Iran and Iraq. Both countries could hold valuable American allies or assets at risk conventionally, or even worse, with chemical weapons, if the United States attempted a preventive strike. Iraq and Iran (thus far) have failed to successfully acquire nuclear weapons, yet North Korea did. Second, when applied to North Korea, the argument relies on an almost circular claim that the U.S. was deterred from taking military action against North Korea because it never carried out a military attack. Yet the United States seriously considered ordering a military strike on the Yongbyon Reactor in 1994.[91] As Van Jackson demonstrates, North Korea perceived this as a credible threat due to a combination of factors, including U.S. military exercises with South Korea and the recent use of force in the Gulf War. Indeed, according to the testimony of defectors, Kim Jong Il (then head of North Korean military forces) “spent much of March 1993 in a military bunker, issuing commands to field units, a curious action if North Korea did not anticipate the possibility of conflict.”[92] The threat of military force, combined with Jimmy Carter’s intervention and the subsequent offer of inducements, led to the Agreed Framework, which successfully froze North Korea’s plutonium program. Certainly the potential for retaliation against Seoul induced caution in American decisionmakers, yet this is beside the point, since Debs and Monteiro’s theory requires only that the proliferator perceive a credible threat of force. North Korea also likely perceived a credible threat of force in 2003, as noted above, but persisted with its nuclear program anyway. Even this more complete security model does not explain how North Korea defied the odds, when other similarly vulnerable states — all of whom had the ability to lash out conventionally or with chemical weapons — failed to acquire nuclear weapons. A strict test of the preventive war mechanism would underestimate North Korea’s probability of acquiring nuclear weapons. A second family of theories focuses on the ability of authoritarian states to successfully manage a nuclear weapons program. In short, none of these models gave North Korea a fighting chance of succeeding. The most prominent example of this theory is Jacques Hymans’s work in Achieving Nuclear Ambitions.[93] Hymans argues that authoritarian regimes, especially neopatrimonial regimes — where networks based on personal ties make up the regime and its power base — are particularly bad at managing complex projects such as nuclear weapons programs that require cooperation and coordination between scientists, industrial and engineering organizations, and the military. Dictatorships are often too paranoid and incompetent to successfully manage such projects, according to Hymans. [quote id="4"] North Korea is the poster boy for this theory. Hymans argues that North Korea “is the ideal-typical case of neopatrimonialism,” where top-down meddling in programs makes it ripe for spectacular failure in projects as complex as nuclear weapons.[94]At the time his book was published, in 2012, Hymans denied that North Korea was actually a nuclear weapons power. He wrote that the October 2006 nuclear test “was an embarrassing technical failure”[95] and the second one in 2009 “was at best only the most minimal of successes.”[96] Hymans further argued that “it remains unclear if North Korea does or does not yet have an operational nuclear arsenal that it could use in battle.”[97] However, tests are only failures if nothing is learned from them. It is clear that North Korea learned a lot from each of these tests and, in its subsequent nuclear and missile tests, has demonstrated an ability to reach thermonuclear yields in the hundreds of kilotons. It also likely has the capacity to deliver its nuclear weapons to regional targets if not the continental United States. Hymans’ theory predicts, at best, “the project’s snail’s pace of progress,” arguing that “it seems reasonable to assume that maintaining the snail’s pace would be the most North Korea could hope for. Moreover, Pyongyang has proved such an inveterate bluffer in the past that we should stop gasping in fear every time it threatens the world with yet another technological ‘breakthrough.’”[98] And yet, history has proven this argument wrong. The 2017 summer sprint in North Korea’s nuclear and missile program was a clear breakthrough — one cannot bluff intercontinental ranges and thermonuclear yields, which speak a universal language. To his admirable credit, however, Hymans develops a falsifiable and testable theory and is willing to make predictions based on it. Unfortunately, North Korea is clearly an outlier for his theory — the pathologies of the Kim regime may have stymied food production, but not the nuclear weapons program — which once again defied the theoretical odds. A second theory in this family of models is Malfrid Braut-Hegghammer’s work on Iraq and Libya, which similarly focuses on authoritarian regimes’ inability to manage nuclear weapons programs.[99] However, Braut-Hegghammer’s argument focuses not on interference in such programs, but on neglect by weak states with personalist regimes, where power is primarily invested in the hands of one leader rather than a political party or other large group. According to her theory, the capacity of weak states is often restricted by constant efforts to prevent the next coup, which leads to the neglect of projects as complex as nuclear weapons. She argues that Saddam and Gaddafi “lacked the capability even to pay close attention to the performance of these programs because they had weakened their states to strengthen their own hold on power.”[100] Drawing on principal-agent theory, Braut-Hegghammer argues that, rather than meddling in their nuclear programs as Hymans suggests, Saddam and Gaddafi failed to monitor it closely enough, allowing scientists to run their own fiefdoms and sell snake oil to these leaders, which in turn resulted in both countries’ failure to successfully develop nuclear weapons. She writes:

weak states often lack the institutional resources to set up and operate nuclear weapons programs. This is particularly problematic in so-called personalist regimes, such as Iraq and Libya, whose leaders undermine formal state institutions and seek to govern through informal structures of patronage and control.[101]

Although the Kim dynasty is clearly dominated by one-man rule and invests a lot of energy in preventing coups,[102] Braut-Hegghammer in fact argues that her theory does not apply to North Korea, which she classifies as a “strong state.”[103] This is debatable. Certainly, the North Korean regime is stronger than many observers believed, given that it has, for decades, defied predictions that it would collapse.[104] Yet if North Korea is truly a strong state, it is puzzling that it was not able to prevent hundreds of thousands (and perhaps millions) of its citizens from dying from famine in the 1990s.[105] As David Kang argued in 2012, the evidence suggests that “North Korea is both strong and weak,” and that the state has weakened further in recent decades, stating, “Largely as a result of weakened state control, the economy has experienced increases in commercialization and marketization in recent years.” This, in turn, has “shriveled the central government’s control over the periphery.”[106] Yet, precisely as the North Korean state has weakened, it has made the most dramatic strides in its nuclear weapons program. At the very least, this trend would seem to contradict the pattern expected by Braut-Hegghammer’s theory. The theories described above, which base predictions of the likelihood of acquisition on either security imperatives or regime type, in fact vastly underpredict North Korea’s probability of acquiring nuclear weapons. Similarly, supply-side or diffusion theories also fail at providing a satisfying explanation of North Korea’s nuclear accomplishments. For example, quantitative studies have found that wealthy (or at least moderately wealthy) countries are significantly more likely to acquire nuclear weapons,[107] yet North Korea acquired these weapons despite being one of the poorest countries in the world. Matthew Fuhrmann’s more nuanced supply-side argument focuses on foreign technical support, contending that North Korea “further underscore[s] the significance of the technical base resulting from atomic assistance,” with the North Koreans receiving Soviet assistance in the 1950s and 1960s.[108] The first problem with this argument is that while it might predict that North Korea would succeed, it should also predict that other countries in threatening security environments that received foreign assistance would acquire nuclear weapons, for example Germany, Japan, South Korea, and Egypt. The second issue is that North Korea did not in fact receive an especially large amount of foreign assistance. Indeed, according to the main metric Fuhrmann uses to measure foreign support — the number of nuclear cooperation agreements — North Korea received far less foreign assistance than the aforementioned countries, and also received significantly less than countries like Ireland, Portugal, and Indonesia, as well as recent proliferators like India, Pakistan, Iran, and Iraq. Matthew Kroenig’s supply-side theory emphasizes the role of sensitive nuclear assistance in facilitating nuclear acquisition, which he defines as the transfer of enrichment or reprocessing technology or bomb designs.[109] While North Korea did receive aid in uranium enrichment technology from the AQ Khan network, this does not explain North Korea’s initial acquisition of nuclear weapons, which relied on plutonium [not highly enriched uranium (HEU)] from an indigenously built reactor and reprocessing facility. Indeed, starting in the 1970s, Pyongyang had “minimal foreign assistance” to its nuclear program, using publicly available information to mimic the designs of British reactors and a Belgian reprocessing facility.[110] A related theory by Michael Horowitz argues that the diffusion of 1950s-era military technology to a state like North Korea should not be surprising.[111] Horowitz writes: “How hard is it actually for a determined proliferator to acquire nuclear weapons? The answer? Not as hard as you might expect. And this becomes clearer when you think about the acquisition of nuclear weapons in the context of other military technologies.”[112] Horowitz himself admirably concedes, however, that the diffusion argument suffers the same problem as supply-side explanations: It overpredicts success. He goes on to point out that “simply importing ‘normal’ military technology diffusion models, while helping us understand North Korea, would probably overpredict proliferation in general, particularly in light of international efforts to make weapons acquisition harder. States such as Iraq and Libya tried but failed to acquire nuclear weapons.”[113] It is not as if we, the authors of this article, were right about North Korea either. Co-author Vipin Narang, in his 2014 book on nuclear strategy, essentially punts on North Korea by claiming it was unclear what its nuclear strategy — if any — was at the time of writing.[114] In his work on strategies of nuclear proliferation, Narang argues that North Korea’s probability of success was heightened because it was able to avail itself of a “sheltered pursuit” strategy, enjoying protection first from the Soviet Union and then China. This in turn enabled Pyongyang to proliferate under the cover of its allies — developing the plutonium pathway to nuclear weapons—before shifting to a “hiding” strategy, exemplified when it cheated on the Agreed Framework to develop a secret uranium enrichment pathway.[115] Here, Narang argues that it was the protection from China that helped stave off a United States attack, not just the threat North Korea posed to Seoul. But even this argument likely underpredicts North Korea’s probability of success, because while sheltered pursuit can often succeed, North Korea’s relationship with China has been peculiar in the post-Cold War era, forcing the Kim regime to at times pursue a hiding strategy. Hiding strategies are very risky if discovered, and North Korea’s hidden program was discovered before it even tested its first fission device. What seems to have deterred the United States from attacking North Korea after the 2002 discovery of the hidden enrichment program was the fear that the North had reprocessed enough plutonium from its sheltered pursuit days for several nuclear bombs — not just the conventional threat to South Korea. Essentially, North Korea’s hidden enrichment program was discovered too late to prevent it. While this framework gets some features of North Korea’s behavior correct, the North Korean case is again unique and defies most theoretical predictions. In general, academic theories of nuclear proliferation sorely missed the mark when it comes to North Korea. It is only one case, to be sure, but it is clearly an important one. However, this sober assessment is not meant to suggest that we should abandon our efforts to theorize about the causes and process of nuclear proliferation. Of the 30 or so states that have begun nuclear weapons programs, 10 succeeded in acquiring them. In other words, it is still a relatively uncommon event, and our theories are necessarily probabilistic. Nevertheless, it is notable how few theories gave North Korea a good chance of acquiring the bomb. [quote id="5"] So what can we learn from this outlier? It is important to note here that an outlier case does not disconfirm any theory. All of the theories discussed above make significant contributions toward explaining and predicting certain cases of nuclear proliferation. With that said, it is useful to examine what adjustments to our theories might be advisable based on the North Korean case. We believe the North Korean case illustrates several dynamics worth incorporating into academic theories of proliferation. First, it shows that the threat of preventive war, even when perceived as credible, has limits as a counterproliferation tool. At several points, North Korea viewed the threat of an American attack as credible, and yet it continued its nuclear program, or else only agreed to limits on that program after receiving significant inducements (in the case of the Agreed Framework). Second, it shows that states can still successfully play a cat-and-mouse game of plausible deniability with hidden programs — as South Africa and Pakistan once did with enrichment programs, and North Korea did with both its reactor and its uranium enrichment program. Third, states that can avail themselves of a “sheltered pursuit” strategy — finding a great power patron, although not necessarily an ally, that is willing to essentially underwrite its illicit behavior and protect it from coercive nonproliferation efforts, have a higher chance of succeeding. It is hard to imagine North Korea acquiring nuclear weapons absent Soviet and then Chinese shelter. While China does not relish a nuclear-armed North Korea, and has become increasingly more disturbed by North Korean behavior over time, it has, for the most part, not been willing to use intense pressure against North Korea over this issue. China fears a North Korean regime collapse that would result in large refugee inflows and the possible stationing of U.S. troops along its border following Korean reunification.[116] The states that enjoy such shelter are few and far between, but there will undoubtedly be others. Fourth, even poor states with domestic political pathologies do not need substantial foreign assistance to successfully acquire nuclear weapons. While impoverished and/or authoritarian countries have acquired nuclear weapons before — India, Pakistan, and China, for instance — they all did so with substantially greater foreign support than North Korea received. The point of this exercise is not to dismiss any theories of nuclear proliferation, but rather to take stock of how to adjust these theories in systematic ways to account for how North Korea succeeded, while fully conceding that the proliferation process is unpredictable and probabilistic and that outliers will always exist. It is a worthwhile endeavor to see how the academic community could have better predicted North Korean nuclearization — because there will likely be other proliferators like North Korea in the future. When taken in combination with Mark Bell’s recent work showing that many of the quantitative correlates of nuclear proliferation are not reliable predictors,[117] our examination of the North Korea case suggests that we, as scholars, should be more modest about our theories’ predictive capacities.

Implications for Nonproliferation Policy

In addition to its implications for academic theory, North Korea’s acquisition of a sophisticated nuclear weapons capability has important implications for nonproliferation policy. For one thing, the North Korea case demonstrates that supply-side measures like export controls are insufficient, even against countries with poor economies. Nuclear technology is 70 years old, and North Korea has demonstrated it is possible to construct the facilities needed to produce fissile material indigenously, based on open-source information. This is true not just for the gas centrifuge, as Kemp has demonstrated,[118] but also for the plutonium path to the bomb that North Korea followed. Indeed, North Korea’s focus on domestic development of nuclear weapons, consistent with its self-reliant, or Juche philosophy, likely made it better able to adapt to technical challenges when compared to countries like Libya and Iraq, which relied more heavily on foreign imports. Moreover, the fact that North Korea indigenously developed a nuclear reactor and reprocessing facility in secret, rather than publicly constructing them under the guise of a nuclear energy program, allowed its nuclear program to make greater progress before the international community could react effectively.[119] A second policy implication is that early detection and policy intervention are crucial if nonproliferation success is to be achieved. Compared to other proliferators, North Korea was relatively successful at concealing its nuclear capabilities and intentions. Partly for this reason, strong international pressure was only mobilized in the early 1990s, when North Korea was quite close to acquiring fissile material for nuclear weapons. Indeed, one could argue that even the Agreed Framework came too late, in that North Korea may have already obtained enough plutonium for a couple nuclear devices. The failure of early detection gave policymakers little margin for error, making it easier for North Korea to succeed in its nuclear quest. Third, international sanctions have important limitations when dealing with extremely isolated countries like North Korea. Unilateral U.S. measures, or even joint measures with allies, only go so far when dealing with a country like North Korea, whose political and economic system is designed on the principle of self-reliance. This is consistent with research on nonproliferation by Etel Solingen and Nicholas Miller, whose theories predict North Korean resilience to economic and political pressure, although they focus on outcomes rather than the acquisition of nuclear weapons.[120] As an inward looking regime, Solingen correctly argues that “North Korea has defied political and economic sanctions from great powers and international institutions, allowing state agencies and industries responsible for productive and distributive functions to benefit from international closure.”[121] Relatively insulated from the international economy to begin with, North Korean leaders were willing to sacrifice the well-being of their population while the regime devoted extraordinary resources to its nuclear weapons program. Miller likewise argues that North Korea was relatively invulnerable to sanctions, although he attributes this primarily to Pyongyang’s lack of dependence on the United States, the main enforcer of the nonproliferation regime. Miller’s argument also identifies a scenario where sanctions might have worked against North Korea: namely if they had been multilateral and stronger in scope. However, U.N. nuclear sanctions were not even imposed until North Korea already acquired nuclear weapons in 2006. Moreover, despite its recent cooperation at the United Nations, China has repeatedly dragged its feet on implementing sanctions over the years, dramatically increasing its trade with North Korea between 2006 and 2014.[122] Akin to the notion of “sheltered pursuit,” sanctions face long odds of success if a proliferator is insulated from the international economy and if its primary ally refuses to implement sanctions until it’s too late and then violates the spirit of those sanctions. Fourth, if export controls and sanctions are unlikely to succeed against isolated adversaries like North Korea, and if credible threats of force have been insufficient in the past, more attention should be given to inducements and diplomacy as possible solutions. Although it is politically challenging, both internationally and domestically, to be seen as “rewarding” proliferators by offering inducements, the history of the North Korea case shows that the greatest restraints on its nuclear program were in fact achieved when Washington offered substantial inducements, i.e., the 1994 Agreed Framework. Although North Korea violated the spirit of this agreement by starting a secret enrichment program, the United States also failed to fully live up to its end of the bargain by repeatedly delaying delivery of the promised inducements. Fifth, and relatedly, the North Korea case highlights the fragility of nonproliferation bargains due to changes in the domestic and international political landscape, a dynamic that makes such bargains hard to reach in the first place. The Agreed Framework — the closest the international community came to preventing North Korea from acquiring a credible deterrent — ultimately was hampered by domestic opposition in the United States by Republicans, who opposed the agreement and later slowed its implementation.[123] This case has obvious parallels to the Iran deal, a nonproliferation bargain whose future is in jeopardy due to consistent Republican opposition, which, as in the case of North Korea, is inflamed by missile tests and extraneous bilateral issues. The fate of the Agreed Framework, along with the U.S. decisions to topple regimes in Iraq and Libya despite their WMD disarmament, raises real questions about the viability of nonproliferation deals with adversaries in the future. This leaves us, unfortunately, with an unhappy conclusion: The sort of diplomatic bargains that are needed to deal with proliferators like North Korea will be increasingly difficult to reach and sustain.

Conclusion

The fact that academic theories mostly underestimated North Korea’s chance of successfully acquiring nuclear weapons gives us an opportunity to audit our theories and adjust them based on lessons from this important case. The biggest theoretical lessons from the North Korean example are the following: 1) that our theories may overestimate the power of preventive war threats in deterring states from pursuing nuclear weapons, 2) that determined leaders, even in dysfunctional authoritarian regimes, are not always doomed to fail in this pursuit, and 3) that even poor countries can succeed at acquiring nuclear weapons based on indigenously developed technology. The policy implications are equally grim. Given enough breathing room, even a poor a state that wants nuclear weapons badly enough can acquire them, defying sanctions and threats of force — particularly if it has an ally to shelter it from a strong multilateral coalition. While offering inducements to adversary proliferators may stand a better chance of success, this is politically challenging for countries like the United States; moreover, the credibility of American diplomatic assurances is increasingly shaky. Given the various pathways to the bomb and the geopolitical fractures that proliferators can exploit, we should not assume that what has so far been a rare event — nuclear proliferation — will always continue to be so.

Nicholas L. Miller is assistant professor in the Department of Government at Dartmouth College. His book, Stopping the Bomb: The Sources and Effectiveness of U.S. Nonproliferation Policy, is forthcoming with Cornell University Press.

Vipin Narang is associate professor of political science and member of the Security Studies Program at the Massachusetts Institute of Technology.

ISSN (Print): 2576-1021 ISSN(Online): 2576-1153

Image: Wikimedia Commons

I. The Wrong Revolution?

As refined by scholars like [Bernard] Brodie, Thomas Schelling, Glenn Snyder, Robert Jervis, Kenneth Waltz, and Stephen Van Evera, nuclear weapons are said to provide states with the ability to protect their sovereignty and independence not via direct defense but rather through deterrence.

If the nuclear revolution affected grand strategy, the United States should have settled for a small arsenal for the sole purpose of deterrence. It would never have sought to integrate nuclear and conventional forces, because nuclear weapons were fundamentally different in that they could never be used. U.S. leaders should have recognized that defenses against nuclear attack were futile, and avoided pouring time and money into such efforts. And they should have managed the process of proliferation so that states, great and regional powers alike, enjoyed the security benefit of a reliable second-strike capability. None of these things happened.[21]

American leaders raced the Soviets in military technologies where the United States was perceived to enjoy significant advantages, while simultaneously entangling the Soviet Union in an arms control regime that would limit areas of Soviet strength. By combining arms racing and arms control, the United States pursued a holistic offset strategy.[29]

The force is larger than it needs to be if deterrence by threat of nuclear retaliation is the sole objective of U.S. nuclear strategy. Even a mildly expanded target base that included selected targets in emerging nuclear powers as well as chemical and biological weapons facilities in a larger set of countries would not necessarily require the sort of force that the United States plans to maintain. What the planned force appears best suited to provide beyond the needs of traditional deterrence is a preemptive counterforce capability against Russia and China. Otherwise, the numbers and the operating procedures simply do not add up.[35]

[C]ounterforce and first nuclear strike are mutually dependent. A first strike implies counterforce targeting, since the only initial attack that makes sense is a damage-limiting strike, the destruction of as much of the enemy’s nuclear force as possible. And counterforce targeting, in return, implies a first strike, a preemptive attack, because a second strike against the enemy’s missiles is useless to the extent that one’s missiles would hit empty holes.

II. Missing Histories

has largely abandoned studying important issues such as international security and nuclear weapons and is in the midst of a four-decade, slow[-]motion act of collective suicide. There simply is not, nor will there be anytime soon, a critical mass of diplomatic and military historians available to research these important questions or make use of these amazing materials.[54]

nuclear strategy…is determined by the President’s views and intentions, not by policy or planning documents, or even force structures. The President alone determines how nuclear war will be fought, by virtue of his position in a highly centralized command and control structure.[69]

III. A Loss for Words?

Although I stand behind the arguments I made in The Illogic of American Nuclear Strategy and The Meaning of the Nuclear Revolution, and believe that they represent a significant scholarly contribution, they were also interventions in a fierce political debate. … I was trying to persuade as well as analyze.[76]

IV. Worse Before It Gets Better

During peacetime, offensive cyber activities would create a dilemma for a state as it may not know whether its systems have been the subject of a cyberattack. This unknown could have implications for military decision-making, particularly for decisions affecting nuclear weapons deterrence policies. At times of heightened tension, cyberattacks on nuclear weapons systems could cause an escalation, which results in their use.[90]

The future of nuclear deterrence is complicated further by the proliferation of conventional military technologies that may undermine traditional modes of escalation management, and as a consequence, nuclear stability. Much attention has already been given to the possible effects of several such technologies, to include stealthy unattended ground sensors, uninhabited aerial vehicles, micro-satellites, and ballistic missile defenses. Comparatively little attention, however, has been given to the possible implications of autonomous systems and artificial intelligence for nuclear stability.[95]

Even though US leaders came to believe that nuclear weapons should not really be used, they were not willing to give up nuclear deterrence. But they were caught in the paradox recognized early on by nuclear strategists: making deterrence credible (especially in the face of the threat of mutual assured destruction) required convincing the adversary that the United States would actually use such weapons. As such threats became less credible over time for both deterrence and normative reasons, more numerous and more elaborate strategies were sought in an effort to bolster credibility.[101]

V. Resisting the Revolution, or Revolution à la carte

Conclusion

Nuclear Strategy

Rethinking the Bomb: Nuclear Weapons and American Grand Strategy

Marching Toward a U.S.-North Korea Summit: The Historical Case for Optimism, Pessimism, and Caution

North Korea Defied the Theoretical Odds: What Can We Learn from its Successful Nuclearization?

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I. The Wrong Revolution?

II. Missing Histories

III. A Loss for Words?

IV. Worse Before It Gets Better

V. Resisting the Revolution, or Revolution à la carte

Conclusion

Pessimism: Denuclearization Is Harder Now Than During Past Efforts

Caution: New Leaders on Both Sides

Optimism: Allies, Peace Regime, and Learning

Conclusion

A Brief History of North Korea’s Nuclear Weapons Program

How Did Academic Theories Perform?

Implications for Nonproliferation Policy

Conclusion

I. The Wrong Revolution?

II. Missing Histories

III. A Loss for Words?

IV. Worse Before It Gets Better

V. Resisting the Revolution, or Revolution à la carte

Conclusion