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  • A Dialogue on Deterrence

    he September 7, 2009 issue of Newsweek carried an article by Jonathan Tepperman in praise of the bomb.  The article was entitled “Why Obama Should Learn to Love the Bomb.”  I was disappointed to see a mainstream media source carrying an article so frivolous as to suggest, “The bomb may actually make us safer.”  In response, I wrote a short rebuttal of Tepperman’s article, “Still Loving the Bomb After All These Years.”  My article elicited a response from analyst Lyle Brecht, who sent me a copy of his excellent brief on deterrence doctrine (http://www.scribd.com/doc/16490356/Nuclear-Posture-Review-Rethinking-Deterrence-Doctrine).  We then had the following exchange of thoughts on nuclear deterrence.

    Krieger: It is deterrence theory that is at the heart of our overly dangerous reliance on nuclear weapons.  If No First Use is really the basis for today’s deterrence thinking, policies and strategies should be brought into line with that thinking, and then we should move far beyond that thinking, if survival is a goal.

    Brecht: The game of MAD is based on possessing a nuclear posture that enables a devastating counterattack, thus my adversary will choose NO First Use of a nuclear weapon as his ‘rational’ game strategy. For if he attacks, he is dead meat when I counterattack.

    Everybody playing MAD understands that this is the game. Thus, the military postures with calculated ambiguity that the U.S. reserves the right to respond with nukes at any time. What is left unsaid and ambiguous is that this response is predicated on an adversary’s First Use.

    This is part of weak-MAD, adding the additional layer of ambiguity to NO First Use MAD and expanding the reasons why one would use nukes.

    Given the technology, the multi-party nature of the game and the stakes (world population, global warming impact, economic consequences) this game is much more dangerous (by magnitudes) and has much more complex rules than the two-party original game of MAD. But, this is what our nuclear deterrence analysts appear to not have fully calculated (at least by what we can see).

    It is hard to see through the newspeak as much of the discourse is a setup for negotiations (country-to-country, internal civilian-to-military, etc.) as opposed to real information or real beliefs.

    Krieger: As you say, “Everybody playing MAD understands that this is the game.”  The problem is that everybody may not be rational. I would ask the question: Is it rational to believe that all leaders will be rational at all times?  I think not, and I think this is a fatal flaw in the game.  MAD contains a dangerous and unreliable (and unprovable) assumption about rationality, which will ultimately result in failure.  We would be far better to get out of the system now, while we still can, by leading the world to verifiable nuclear disarmament.  In my view, that is where rationality lies, not in the pathetically weak intellectual arguments about deterrence theory from people like Waltz and Tepperman.

    Brecht: Yes. I agree wholly. It’s a dumb game. It’s unwinnable from my analysis (that is, the game is a zombie situation). The issue is that many smart, knowledgeable people believe that the game of MAD (in its incarnations) is the only game in town, assuming nuclear weapons exist and that it is practicably impossible to eliminate nuclear weapons from the world’s arsenals, irrespectively of what the U.S. does unilaterally or Russia and the U.S. decide bilaterally. The game has legs even without the U.S. and Russia’s arsenals. That is why I suggest it may be worthwhile to invent another game (strategy) that all can play and that is winnable e.g. does not require another $60,000 billion in allocated capital over the next 64 years to “play” so that we don’t realize Armageddon sometime during that time period.

    Actually, the game does not depend on “rational” leaders. At least “rational” from the perspective of someone who is not playing the game. If the game is really a prisoner’s dilemma rather than a Nash Equilibrium as I suggest, rationality is not necessarily rewarded. Cheating is – and this is what we are seeing. All the players keep their moves secret. What they do say is untrustworthy. And, there is lots of feints and double crosses, etc. It is a very interesting game. That is one reason why many folks don’t want to give it up. If you think about it, geopolitics would probably invent something to take the place of nukes if nukes did not exist (I am not saying that the pivot would necessarily need to be a doomsday machine. In fact, I am saying that we need to invent a pivot that is NOT a doomsday machine!). Nukes are just a penultimate geopolitical tool that may be used only if all other tools in the arsenal of political tools fail (read Carl von Clausewitz, On War, edited and translated by Michael Howard and Peter Paret, Princeton: Princeton University Press, 1976).

    The reality of eliminating all life on earth or driving GDP from $14,000 billion to $1 billion is discounted to zero (or very close to zero). This is a failure of imagination first and foremost. And these nuclear optimists have very “rational” arguments to substantiate their position. My assertion is that these arguments only make sense in their self-referentiality: Because the game is believed to “work” (we have not blown ourselves up yet, and nukes exist, and no one has invented another game), it makes sense to play the game (with a few tweaks here and there, e.g., let’s limit the number of launchers or strategic weapons or let’s push nonproliferation on any state we are “uncomfortable” with possessing nukes, etc.).

    Krieger: What you suggest is that the job is to educate those who have incentives to stick with a potentially world destroying game.  But the Tepperman’s and Waltz’s of the world may prove to be uneducable.  I thought Martin Hellman put it well in another piece in which he pointed out that their logic is akin to arguing that the space shuttle program launches worked well 23 out of 23 times, right up until the 24th launch when it failed (Challenger).  The past, particularly the relatively short past, cannot predict the future.  That seems like a fool’s game, and it is the one that is being played by those with control of the game.  Given the high stakes of the game, it seems to me that we should press for Obama’s vision of working toward a world free of nuclear weapons, and try to prevent him from being pinned down by the nuclear optimists.  It seems to me that the other game would be based upon cooperation, one in which nations unite in common purpose to prevent major global threats such as global warming, terrorism, poverty and starvation, natural disasters, etc.  I’m sure this sounds idealistic in relation to the military planners, but it provides an alternative model that will in time prove essential for a decent human future.

    Brecht: A few thoughts:

    Overlay: the progressive denuclearization policy wonks right now are discussing ~20 years to zero nukes; the military policy folks are discussing a longer than 20 years, go slow timeframe to REDUCE strategic risk of denuclearization; the nuclear hawks are willing to go for lower numbers of nukes (public negotiating posture is more nukes), but want to modernize them and to add missile shield systems, and even go slower than military policy folks. That is the denuclearization terrain as best I understand it today.

    From the Pentagon: the Nuclear Posture Review (2009) that is proceeding is a top-to-bottom review of America’s nuclear force structure. The objective is to analytically determine, first of all, how many nuclear weapons the U.S. needs for deterrence. The Review will also include recommendations concerning whether a new generation of safer and more reliable warheads should be built and whether the nation still needs to maintain a triad of land-based missiles, submarine-launched missiles and strategic nuclear-weapons laden bombers.

    Ultimately, the intent of the Review is to define the appropriate number of strategic weapons, as well as which missiles, bombers and submarines to keep, how much to spend modernizing them and the potential strategic implications for deterrence that is supposed to function in a changing world where small states, too, can acquire nuclear arms.

    Although some analysts both inside and outside the government believe that the original value of nuclear weapons as deterrence has become increasingly less relevant in today’s world and discussions concerning denuclearization should proceed, other analysts believe that it is possible to limit the role of our nuclear weapons to a core deterrence mission with an “appropriate” number of nuclear warheads and delivery systems to deter attacks on the United States and its allies (extended deterrence under the nuclear umbrella provided by the U.S.).

    The debate is presently focusing on the details: how many nukes, what kind, how modern, how fast to reduce the national stockpile, numbers of launchers, subs and bombers, how the numbers of each part of the nation’s nuclear posture should be accounted for, and the administrative policies, procedures and processes to verify that this agreed to strategy is actually carried out and some command somewhere is not hoarding nukes, just in case. The entire analytical exercise is proceeding with the objective of calculating with a fair degree of confidence whether these decisions sustain a safe, secure and effective nuclear deterrent for America, but also for our allies. This analysis is what will inform any treaty negotiations to denuclearize.

    But what if the assumption that nuclear weapons themselves provide good value for deterrence in the world of the 21st Century was wrong? What if this foundational assumption, taken for granted by those schooled in Cold War gamesmanship is flawed? What if nuclear weapons, irrespective of their numbers and all the detailed assessments that go into the Review provide little deterrence at a staggeringly high cost? By the way: a cost that may be unsustainable if the past 64-year cost is any measure. This cost is ~100% knowable vs. the probabilistic projections of cost of a nuclear accident, mistake, terrorist attack or war.

    If that is the case, would nuclear powers still wish to hold on to a supply of nuclear weapons for old times’ sake? Or build or acquire new nukes? Would the carefully calculated numbers of nuclear weapons required for deterrence, arrived at through pained and thoughtful analysis reported in the Review and carefully negotiated in the upcoming bilateral and multilateral treaty talks, resemble Medieval theological discussions of the number of angels that can dance on the end of a pin at best, or at worst, how we might rearrange deck chairs on the Titanic just prior to the ship hitting the iceberg?

    Krieger: Your thoughts reinforce the idea that the system may appear rational and coherent from within, but not from without. Your “What ifs?” strike me as appropriate probes for the people in charge of the country to be making.  A similar inquiry from Napoleon might have been, “What happens when we get to Moscow?”  The questions I’d like to see asked by the public as well as in strategic circles are these, “What happens if (when) deterrence fails?  What could cause deterrence to fail?  Are the people of our country prepared to pay the ultimate price for our reliance on deterrence to be completely effective?  How could we build security on ground less shaky than nuclear deterrence?  For how long will we be willing to roll the dice (or play Russian Roulette) with nuclear deterrence?

    Brecht: We end up in a similar place, only along somewhat different paths:

    You argue that nuclear weapons are bad (ethically and morally untenable) because deterrence may fail with a probability of (P = x) and the probabilistically calculated cost of failure is unacceptably high. I agree w/ this assessment, however:

    I argue further that nuclear deterrence must fail with a probability (P </~ 1) approaching certainty during any particular historical period because the game is rigged. It is unwinnable no matter how much capital we spend to ‘manage’ the playing of the game (e.g. numbers of strategic weapons, launchers, submarines, bombers). It is dumb to continue to play an unwinnable game, at any cost, for any future historical period (e.g. spending the next 20 or more years incrementally denuclearizing, etc.).

    Krieger: MAD may turn out to stand not only for Mutually Assured Destruction, but also for the Mutually Assured Delusions that decision makers continue to hold about the efficacy – past, present and future – of nuclear deterrence doctrine.

    David Krieger is President of the Nuclear Age Peace Foundation. Lyle Brecht is a business development adviser, social entrepreneur and President of the Blue Heron Group.
  • The Man in the TNT Vest

    Imagine a man wearing a TNT vest were to come into the room and, before you could escape, managed to tell you that he wasn’t a suicide bomber. He didn’t have the button to set off the explosives. Rather, there were two buttons in very safe hands. One was with President Obama and the other was with President Medvedev, so there was nothing to worry about. You’d still get out of that room as fast as you can!

    Just because we can’t see the nuclear weapons controlled by those two buttons, why do we stay in this room? As we would if confronted by the man in the TNT vest, we need to be plotting a rapid escape. Instead, we have sat here complacently for roughly 50 years, trusting that because Earth’s explosive vest hasn’t yet gone off, it never will.

    Before society will look for an escape route, we have to overcome its mistaken belief that threatening to destroy the world is somehow risk free. Changing societal thinking is a huge task, but as with achieving the seemingly impossible goals of ending slavery and getting women the vote, the first step in correcting this misperception is for courageous individuals to speak the truth: The nuclear emperor has no clothes — except for that stupid vest!

    You have an advantage that the abolitionists and the suffragettes did not. You can propagate the needed message to all your friends merely by emailing them a link to this page http://nuclearrisk.org/email21.php, or whatever you think would be most effective. While communicating with friends may seem trivial compared to the immense task we face, as explained in the resource section below, at this early stage of the process it is the essential action. I hope you will consider doing that, so that Earth’s explosive vest can become but a distant nightmare to future generations.

    Drawing of a man with a vest made of nuclear missiles

    Illustration is ©2009 NewsArt.com

    This article was originally published at the Nuclear Risk website
    Martin E. Hellman is a member of the National Academy of Engineering and Professor Emeritus at Stanford University. His current project applies risk analysis to nuclear deterrence, and is described in detail at NuclearRisk.org.
  • American Planning for a Hundred Holocausts

    This is the first installment of Daniel Ellsberg’s personal memoir of the nuclear era, “The American Doomsday Machine.” The online book will recount highlights of his six years of research and consulting for the Departments of Defense and State and the White House on issues of nuclear command and control, nuclear war planning and nuclear crises. It further draws on 34 subsequent years of research and activism largely on nuclear policy, which followed the intervening 11 years of his preoccupation with the Vietnam War.

    Click here for our special page containing Ellsberg’s memoir installments as they are released.

    One day in the spring of 1961, soon after my 30th birthday, I was shown how our world would end. Not the Earth, not—so far as I knew then—all humanity or life, but the destruction of most cities and people in the Northern Hemisphere.

    What I was handed, in a White House office, was a single sheet of paper with some numbers and lines on it. It was headed “Top Secret—Sensitive”; under that, “For the President’s Eyes Only.”

    The “Eyes Only” designation meant that, in principle, it was to be seen and read only by the person to whom it was explicitly addressed, in this case the president. In practice this usually meant that it would be seen by one or more secretaries and assistants as well: a handful of people, sometimes somewhat more, instead of the scores to hundreds who would normally see copies of a “Top Secret—Sensitive” document.

    Later, working in the Pentagon as the special assistant to the assistant secretary of defense, I often found myself reading copies of cables and memos marked “Eyes Only” for someone, though I was not that addressee, nor for that matter was my boss. And already by the time I read this one, as a consultant to the Office of the Secretary of Defense, it was routine for me to read “Top Secret” documents. But I had never before seen one marked “For the President’s Eyes Only,” and I never did again.

    The deputy assistant to the president for national security, my friend and colleague Bob Komer, showed it to me. A cover sheet identified it as the answer to a question President John F. Kennedy had addressed to the Joint Chiefs of Staff a week earlier. Komer showed it to me because I had drafted the question, which Komer had sent in the president’s name.

    The question to the JCS was: “If your plans for general [nuclear] war are carried out as planned, how many people will be killed in the Soviet Union and China?”

    Their answer was in the form of a graph (see representation below). The vertical axis was the number of deaths, in millions. The horizontal axis was time, indicated in months. The graph was a straight line, starting at time zero on the horizontal—on the vertical axis, the number of immediate deaths expected within hours of our attack—and slanting upward to a maximum at six months, an arbitrary cutoff for the deaths that would accumulate over time from initial injuries and from fallout radiation.

    The lowest number, at the left of the graph, was 275 million deaths. The number at the right-hand side, at six months, was 325 million.

     

    That same morning, with Komer’s approval, I drafted another question to be sent to the Joint Chiefs over the president’s signature, asking for a total breakdown of global deaths from our own attacks, to include not only the whole Sino-Soviet bloc but all other countries that would be affected by fallout. Again their answer was prompt. Komer showed it to me about a week later, this time in the form of a table with explanatory footnotes.

    In sum, 100 million more deaths, roughly, were predicted in East Europe. There might be an additional 100 million from fallout in West Europe, depending on which way the wind blew (a matter, largely, of the season). Regardless of season, still another 100 million deaths, at least, were predicted from fallout in the mostly neutral countries adjacent to the Soviet bloc or China: Finland, Austria, Afghanistan, India, Japan and others. Finland, for example, would be wiped out by fallout from U.S. ground-burst explosions on the Soviet submarine pens at Leningrad. (The total number of “casualties”—injured as well as killed—had not been requested and was not estimated; nor were casualties from any Soviet retaliatory strikes.)

    The total death toll as calculated by the Joint Chiefs, from a U.S. first strike aimed primarily at the Soviet Union and China, would be roughly 600 million dead. A hundred Holocausts.

    * * *
    I remember what I thought when I held the single sheet with the graph on it. I thought, this piece of paper should not exist. It should never have existed. Not in America. Not anywhere, ever. It depicted evil beyond any human project that had ever existed. There should be nothing on Earth, nothing real, that it referred to.

    But I knew what it dealt with was all too real. I had seen some of the smaller bombs myself, H-bombs with an explosive yield of 1.1 megatons each—equivalent to 1.1 million tons of high explosive, each bomb half the total explosive power of all the bombs of World War II combined. I saw them slung under single-pilot F-100 fighter-bombers on alert at Kadena Air Base on Okinawa, ready to take off on 10 minutes’ notice. On one occasion I had laid my hand on one of these, not yet loaded on a plane. On a cool day, the smooth metallic surface of the bomb was warm from the radiation within: a bodylike warmth.

    I was in Okinawa in the fall of 1959 as part of a task force organized by the Office of Naval Research, which was there to study and improve nuclear command and control for the commander in chief of the Pacific Command (CINCPAC), Adm. Harry D. Felt. I was on loan from the RAND Corp., which I had joined as a full-time employee in June 1959 after a previous summer there as a consultant. This particular study took us to every command post in the Pacific that year and the next—from Oahu to Guam, Tokyo, Taiwan and the command ship of the Seventh Fleet—with license from Adm. Felt to “talk to anyone, see anything” in the field of nuclear command and control.

    At Kadena, the pilots weren’t in the planes on alert or in the hut on the alert strip; they were allowed to be elsewhere, at the post exchange or in their quarters, because each was accompanied at all times by his individual jeep and driver to return him in minutes to the strip when an alert was sounded. They practiced the alert at least once a day. The officer in charge told our research group that we could choose the time for that day’s rehearsal. When our leader said “OK, now,” the klaxons sounded all over the area and jeeps appeared almost instantly on all the roads leading to the strip, rushing around curves, pilots leaping out as they reached the strip and scrambling into the cockpits, still tightening their helmets and gear. Engines started in 10 planes, almost simultaneously. Ten minutes.

    These were tactical fighter-bombers, with limited range. There were more than a thousand of them, armed with H-bombs, in range of Russia and China on strips like this or on aircraft carriers surrounding the Sino-Soviet bloc (as we still thought of it in 1961, though China and the Soviets had actually split apart a couple of years before that). Each of them could devastate a large city with one bomb. For a larger metropolitan area, it might take two. Yet the Strategic Air Command (SAC), which did not command these planes (they were under the control of theater commanders), regarded these tactical theater forces as so vulnerable, unreliable and insignificant as a factor in all-out nuclear war that SAC planners had not even included them in their calculations of the outcome of attacks in a general war until that year.

    Before 1961, planners at SAC headquarters took into consideration only attacks by the heavy bombers, intermediate-range ballistic missiles and ICBMs commanded by SAC, along with Polaris submarine-launched missiles. In the bomb bays of the SAC planes were thermonuclear bombs much larger than those I saw in Okinawa. Many were from five to 20 megatons in yield. Each 20-megaton bomb—1,000 times the yield of the fission bomb that destroyed Nagasaki—was the equivalent of 20 million tons of TNT, or 10 times the total tonnage the U.S. dropped in World War II. Some 500 bombs in the arsenal each had the explosive power of 25 megatons. Each of these warheads had more power than all the bombs and shells exploded in all the wars of human history.

    These intercontinental bombers and missiles had come to be stationed almost entirely in the continental U.S., though they might be deployed to forward bases outside it in a crisis. A small force of B-52s was constantly airborne. Many of the rest were on alert. I had seen a classified film of an incredible maneuver in which a column of B-58s—smaller than B-52s but still intercontinental heavy bombers—taxied down a runway and then took off simultaneously, rather than one at a time. The point—as at Kadena and elsewhere—was to get in the air and away from the field as fast as possible, on warning of an imminent attack, before an enemy missile might arrive. In the time it would normally have taken for a single plane to take off, a squadron of planes would be airborne, on its way to assigned targets.

    In the film these heavy bombers, each as big as an airliner, sped up in tandem as they raced down the airstrip, one behind the other so close that if one had slackened its pace for an instant the plane behind, with its full fuel load and its multiple thermonuclear weapons, would have rammed into its tail. Then they lifted together, like a flock of birds startled by a gunshot. It was an astonishing sight; it was beautiful.

    The planned targets for the whole force included, along with military sites, every city in the Soviet Union and China.

    On carriers, smaller, tactical bombers would be boosted on takeoff by a catapult, a kind of large slingshot. But since the general nuclear war plan, as I knew, called for takeoff around the world of as many U.S. planes and missiles as were ready at the time of the execute order—as near-simultaneously as possible—to attack targets that were all assigned in prior planning, the preparations contemplated one overall, inflexible global attack as if all the vehicles, with more than 3,000 warheads, were launched by a single catapult. A sling made for Goliath.

    The rigidity of the single, coordinated plan—which by 1961 included tactical bombers—in what was termed the Single Integrated Operational Plan, or SIOP, meant that its underlying “strategy” amounted to nothing more than a vast trucking operation to transport thermonuclear warheads to Soviet and Chinese cities and military sites. The latter were the great majority of targets, since all the cities could be destroyed by a small fraction of the attacking vehicles.

    One of the principal expected effects of this plan—partly intended, partly (in allied, neutral and “satellite” countries) unavoidable “collateral damage”—was summarized on the piece of paper I held that day in the spring of 1961: the extermination of over half a billion people.

    (In fact, this was certainly a vast underestimate of the fatalities. Dr. Lynn Eden, a scholar at Stanford’s Center for International Security and Cooperation, has revealed in “Whole World on Fire” (Cornell, 2004) the bizarre fact that the war planners of SAC and the Joint Chiefs have—throughout the nuclear era, to the present day—deliberately omitted entirely from their estimates of the destructive effects of U.S. or Russian nuclear attacks the effects of fire. They have done so on the grounds that these effects are harder to predict than the effects of blast or fallout on which their estimates of fatalities are exclusively based. Yet the firestorms caused by thermonuclear weapons are known to be predictably the largest producers of fatalities in a nuclear war! Given that for almost all strategic nuclear weapons the damage radius of firestorms would be two to five times the radius destroyed by blast, a more realistic estimate of the fatalities caused directly by the planned U.S. attacks would surely have been double the figure on the summary I held in my hand—a billion people or more.)

    The declared intent of this planning deployment and rehearsal was to deter Soviet aggression. I knew by this time something that was rarely made clear to the American public, that what was to be deterred by all this was not only nuclear attacks by the Soviets but conventional, non-nuclear Soviet aggression, in Europe in particular. In both cases, the story went, it was all designed to prevent such Soviet attacks from ever taking place. This global machine had been constructed in hopes that it would never be set in motion: or, as it was often put, so that it would never be used. The official motto of SAC, on display at all its bases, was “Peace Is Our Profession.”

    Deterring Soviet non-nuclear aggression in Europe—say, a military occupation of West Berlin—depended ultimately on a presidential commitment to direct, if necessary, a U.S. nuclear first strike on the Soviet Union. SAC’s profession would shift near-instantaneously from Peace to War. The Strategic Air Command trained daily, and effectively, to be ready to carry out that order. The American commitment to defend NATO (with Berlin its most vulnerable element) by nuclear threats, and if necessary by strategic first-strike nuclear attacks, effectively passed the trigger for such U.S. attacks to the Soviets.

    The real possibility that the Soviets might pull that trigger lay at the heart of all our nuclear planning and preparations. It was understood that although deterrence was the principal objective of our nuclear posture, it was not foolproof. It might fail. That applied both to deterrence of nuclear attack and to deterrence of a conventional Soviet attack in Europe. In either case, it was not impossible that the Soviets would attack despite our threats and our best efforts to dissuade them.

    What to do then was a matter of highly classified discussion over the years. But on this question the official top-secret plans approved by President Dwight D. Eisenhower were unequivocal: the demolition of the Sino-Soviet bloc.

    A striking and highly secret characteristic of the existing plans was that they called for essentially the same strategic response and targeting list for each of three quite distinct ways in which general war might come about. The first, and most likely in the judgment of the JCS, was a U.S. nuclear first strike as an escalation of conflict between U.S. and Soviet conventional forces, perhaps originating in conflict over Berlin or an uprising in East Europe. Second was U.S. pre-emption of an imminent Soviet nuclear attack on the U.S., or as I’d heard it described in the Pentagon, “striking second first.” Third—and least likely in the eyes of the JCS—was a retaliatory response to a successful Soviet surprise attack.

    Although the size of the U.S. force available for attack would be different in each of these cases, the Eisenhower-approved plans called for the same target list—which included 151 “urban-industrial targets,” i.e. cities, along with military targets—to be attacked under all conditions.

    The circumstances of war initiation, by determining the size of the force, would influence only the amount of coverage of the target list. Initial attacks would be as massive and as nearly simultaneous in arrival as possible. Attacks by all nonalert forces would follow as quickly as they could be launched. No forces would deliberately be held in reserve: an arrangement perhaps unique in the history of war planning.

    And in all three cases, all large cities of both the Soviet Union and China (even if China had no part in the crisis or hostilities triggering execution of this plan) were high on the list for initial, simultaneous missile attacks, and for subsequent coverage by bombers—along with the highest-priority Soviet missile sites, air bases, air defenses and command centers.

    In the White House in January 1961 I had informed the newly arrived assistant to the president for national security, McGeorge Bundy, of a number of little-known facts and problems. (How I came to this knowledge will be recounted later in this series.) One of these was the focus on U.S. first-strike plans in American preparations for any conflict with the Soviet Union involving forces above the level of a brigade. Another was Eisenhower’s approval of operational planning to destroy an “optimum mix” of population targets along with military sites no matter how the conflict had originated.

    A third subject in my briefing was the variety of ways in which the strategic forces might be triggered “by accident”: by false alarm, miscalculation, miscommunication, or actions not directly authorized by the president or perhaps by any high-level commander. (Exploring these possibilities in the field had been my special mission in the CINCPAC task force, and later as a RAND specialist in nuclear weapons “command and control.”)

    The last point in particular caught Bundy’s attention. I reported what I had learned in the Pacific, one of the most sensitive secrets in the system: that to forestall the possibility that our retaliatory response might be paralyzed either by a Soviet attack on Washington or by presidential incapacity, President Eisenhower had as of 1958 secretly delegated to theater commanders the authority to launch nuclear operations in a crisis, either in the event of the physical unavailability of the president—Eisenhower himself had suffered both a stroke and a heart attack in office—or if communications with Washington were cut off.

    I had further learned that CINCPAC, Adm. Felt, had likewise delegated that authority downward in his command, under like conditions. That put many fingers on the button if communications went out between Washington and Hawaii, or Hawaii and the Western Pacific. In those years such an outage occurred for each of these links, on average, once a day. Thus this arrangement magnified greatly the possibilities listed above for “inadvertent, accidental” nuclear war, especially when outages occurred during a potential nuclear crisis such as the Taiwan Straits (Quemoy) confrontation of 1958. (The response of the Kennedy and Johnson administrations to this information will be addressed in my next installment.)

    The combined message of these reports was that our overall system for strategic response had the character of a giant thermonuclear mousetrap on a hair trigger. For a wide variety of provocative circumstances—definitely not requiring and most not involving either Soviet-initiated nuclear attacks or imminent expectation of them—it was set inflexibly to annihilate a large fraction of the civilian population of the Soviet Union and China, and of many allies and neutrals.

    My one-on-one briefing of Bundy in his first weeks in office—arranged by Paul Nitze, the assistant secretary of defense for international security affairs—was in part the reason I was in a position to draft questions for the White House soon after. As it happened, I had drafted the question about estimated deaths from execution of the general war plans in the belief that the JCS did not know an answer to it. Officers I worked with in the planning staff of the Air Force were convinced that no one, either in the Joint Staff or the Air Staff, had ever calculated the overall human consequences of carrying out their plans. That encouraged me to ask the JCS in the name of a higher authority for an estimate, in the expectation they would be embarrassed by having to admit they could not answer it promptly.

    The authority I had in mind initially was the secretary of defense. (Although funding for RAND, including my salary, came mainly from the Air Force at that time, I was in effect on loan to the Office of the Secretary of Defense for much of 1961.) But as I’ve said, the question was picked up by the White House and sent in the president’s name. I had deliberately limited it, initially, to effects in the Soviet Union and China alone, instead of worldwide or in the Sino-Soviet bloc. That was to keep the Joint Staff from disguising its lack of any estimates at all by pleading a need for time to calculate casualties, say, in Albania, or the Southern Hemisphere.

    Alternatively, I expected the Joint Staff to improvise an estimate which could easily be exposed, to its embarrassment, as unrealistically low. The point of eliciting either of these expected responses was to gain bargaining power for the secretary of defense in a bureaucratic effort (discussed later) to change the JCS plans in the direction of guidance I had drafted for the secretary earlier that month.

    But my expectations were wrong. The Joint Chiefs were embarrassed neither by the question nor by their answer. That was the surprise, along with the answer itself. The implications, as I saw them, were literally existential, bearing on the nature and future of our species.

    I myself at that time was neither a pacifist nor a critic of the explicit logic of deterrence or its legitimacy. On the contrary, I had been urgently working with my colleagues to assure a survivable U.S. capability to threaten clearly unacceptable damage to the Soviet Union in response to the most successful possible Soviet nuclear attack on the U.S. But planned slaughter of 600 million civilians—10 times the total death count in World War II, a hundred times the scale of the Holocaust? That aimed-for accomplishment exposed a dizzying irrationality, madness, insanity, at the heart and soul of our nuclear planning and apparatus.

    I said earlier that I saw that day how the northern civilized world would end. I might have thought instead how it could end or might do so, but that wasn’t the conclusion I drew then. The chart I held in my hand that spring morning said to me that any confidence—worse, it seemed, any realistic hope—that the alert forces on either side might never be used was ill-founded.

    The Americans who had built this machine, knowing, it turned out, that it would kill more than half a billion people if it were turned on—and who were unabashed in reporting this to the president—humans like that would not fail to pull the switch if ordered to do so by a president, or, as I mentioned above and will discuss in the next installment, possibly by a superior other than the president.

    And the presidents themselves? A few months earlier, Dwight Eisenhower had secretly endorsed the blueprints of this multi-genocide machine. He had furthermore demanded largely for budgetary reasons that there be no other plan for fighting Russians. He had approved this single strategic operational plan despite reportedly being, for reasons I now understood, privately appalled by its implications. And the Joint Chiefs had responded so promptly to his successor’s question about the human impact of our planned attacks because they clearly assumed that John Kennedy would not, in response, order them to resign or be dishonorably discharged, or order the machine to be dismantled. (In that, it turned out, they were right.)

    Surely neither of these presidents actually desired ever to order the execution of these plans, nor would any likely successor want to take such an action. But they must have been aware, or should have been, of the dangers of allowing such a system to exist. They should have reflected on, and trembled before, the array of contingencies—accidents, false alarms, outages of communications, Soviet actions misinterpreted by lower commanders, unauthorized action—that might release pent-up forces beyond their control; and on possible developments that could lead them personally to escalate or launch a pre-emptive attack.

    Eisenhower had chosen to accept these risks. To impose them on humanity, and all other forms of life. Kennedy and Lyndon B. Johnson to my direct knowledge did likewise. So did Richard Nixon. To bring this story up to the present, there is much evidence—and none to the contrary—that the same has been true of every subsequent president.

    Two more aspects of their gambles were not known to me in 1961. Later accounts in this series will reveal that in the Quemoy crisis three years earlier and the Cuban missile crisis one year later—and to lesser extent in a couple of dozen other episodes—these risks came secretly closer to being realized than almost anyone recognizes to this day.

    Moreover, the scale of the potential catastrophe was and remains vastly greater than I or the JCS or any presidents imagined over the next 20 years. Not until 1982-83 did new calculations—recently confirmed—reveal that hemispheric and possibly global clouds of smoke and soot from the burning cities attacked by U.S. or Russian forces would block out sunlight for a prolonged period, lowering temperature drastically during spring and summer, freezing lakes and rivers and destroying crops worldwide. This “nuclear winter” could extinguish many forms of life and starve to death billions of humans.

    Yet the “option” of massive attacks on cities (or, euphemistically, upon industrial and military targets within or near cities) almost surely remains one among many planned alternatives, ready as ever to be carried out, within the strategic repertoire of U.S. and Russian plans and force readiness: this, a quarter-century after the discovery of the nuclear winter phenomenon.

    The U.S. and Russia currently each have about 10,000 warheads, over 2,000 of them operationally deployed. (Each has several thousand in reserve status—not covered in recent negotiations—and an additional 5,000 or so awaiting dismantlement). Presidents Barack Obama and Dmitry Medvedev have agreed to lower the operational warheads to between 1,500 and 1,675 by the year 2012. But the explosion of 1,000 warheads together by the U.S. and Russia could trigger a full-scale nuclear winter. And recent studies show the possibility of ecological catastrophe from smoke effects on the ozone layer after a very much smaller exchange, such as could occur between India and Pakistan.

    A 2007 peer-reviewed study concluded that “the estimated quantities of smoke generated by attacks totaling little more than one megaton of nuclear explosives [two countries launching 50 Hiroshima-size bombs each] could lead to global climate anomalies exceeding any changes experienced in recorded history. The current global arsenal is about 5000 megatons.” A December 2008 study in Physics Today estimates that “the direct effects of using the 2012 arsenals [1,700 to 2,200 Russian and American warheads each] would lead to hundreds of millions of fatalities. The indirect effects [long-term, from smoke] would likely eliminate the majority of the human population.”

    It is the long-neglected duty of the American Congress to test these scientific findings against the realities of our secret war plans. It is Congress’ responsibility to investigate the nature of the planned targets for the reduced operational forces proposed by Obama and Medvedev—1,500 to 1,675—or some lower but still huge number like 1,000, and the foreseeable human and environmental consequences of destroying those targets with the attacks currently programmed.

    The questions to be addressed initially are simple: “How many cities would burn under our various preplanned ‘options’? How many humans would die from these various attacks—from blast, fire, fallout, smoke, soot and ozone depletion—in the target country, in its regional neighbors, in America, and worldwide?”

    And these, less simple: “For each of these possible attack options and exchanges, what is the likely, and the range of possible, impact on the regional and global environment? Which of our options, if any, threaten to produce regional or worldwide nuclear winter? Do we—or does any state—have a right to possess such an ‘option’? Should a U.S. or Russian president have the authority—or the power, as each now has—to order attacks that might have the global effects described above?”

    Our representatives in Congress should—for the first time—take on responsibility for learning about and influencing the possible human and environmental consequences of carrying out our operational nuclear war plans. But past experience makes clear that Senate or House members will not hold real investigative hearings, using committee subpoena powers, to penetrate the curtains of secrecy around these matters without a new level of pressure from American citizens. (To join some worthy efforts—which have not heretofore, in my judgment, focused sufficiently on congressional investigation or war planning—see here, here and here.)

    This is not a responsibility only for Americans and their representatives. The stakeholders directly threatened by the possibility, however unlikely, that Americans and Russians might launch a major fraction of their presently deployed nuclear forces against each other comprise all the citizens of every state on Earth.

    Every parliament in the world has an urgent need to know what its constituents have to expect—in the way of homicidal and environmental damage—from a U.S.-Russian nuclear exchange: or for that matter, from an India-Pakistan exchange. These assemblies have a stake in discovering—and changing—the societal and ecological impact of the existent contingency war plans of every nuclear weapons state, the U.S. and Russia above all but the others as well. What is needed is a worldwide movement. Fortunately there are several efforts to join (see here, here, here, here and here), in keeping with President Obama’s declared goal of a world free of nuclear weapons.

    I felt sure in 1961 that the existent potential for moral and physical catastrophe—our government’s readiness to commit multi-genocidal extermination on a hemispheric scale by nuclear blast and fallout (no one knew yet of the global danger of ecocide and mass extinctions from smoke and ozone depletion)—was not only a product of aberrant Americans or a peculiarly American phenomenon. I was right. A few years later, after the Soviets were humiliated by the Cuban missile crisis and Nikita Khrushchev was ousted, the Kremlin set out to imitate our destructive capacity in every detail and surpass it when possible.

    To be sure, Americans, and U.S. Air Force planners in particular, were the only people in the world who believed that they had won a war by bombing, and, particularly in Japan, by bombing civilians. In World War II and for years afterward, there were only two air forces in the world, the British and American, that could so much as hope to do that.

    But the nuclear era put that demonic temptation—to deter, defeat or punish an adversary on the basis of an operational capability to annihilate most of its population—eventually within the reach of a great many nations. By the spring of ’61, four states (soon to be five, now nine) had, at great expense, bought themselves that capability. Humans just like these American planners—and presidents—were surely at work in every nuclear weapons state producing plans like these for nuclear attacks on cities. I knew personally many of the American planners, though apparently—from the fatality chart—not quite as well as I had thought. What was frightening was precisely that I knew they were not evil, in any ordinary, or extraordinary, sense. They were ordinary Americans, capable, conscientious and patriotic. I was sure they were not different, surely not worse, than the people in Russia who were doing the same work, or the people who would sit at the same desks in later U.S. administrations. I liked most of the planners and analysts I knew. Not only the physicists at RAND who designed bombs and the economists who speculated on strategy (like me), but the colonels who worked on these very plans, whom I consulted with during the workday and drank beer with in the evenings.

    That chart set me the problem, which I have worked on for nearly half a century, of understanding my fellow humans—us, I don’t separate myself—in the light of this real potential for self-destruction of our species and of most others. Looking not only at the last eight years but at the steady failure in the two decades since the ending of the Cold War to reverse course or to eliminate this potential, it is hard for me to avoid concluding that this potential is more likely than not to be realized in the long run.

    Are further proliferation and—what I have focused on here—the persistence of superpower nuclear arsenals that threaten global catastrophe a near-certainty? Is it too late to eliminate these dangers, in time? Some dark days I think so, as I did that morning in the White House. Most of the time I don’t, or I would not have tried as I have and still do to eliminate them, and I would not be using my time to begin this account of them.

    The story does get worse; see, for example, my next installment, “How Many Fingers on the Buttons?” The more one learns about the hidden history of the nuclear era—this is the cumulative message of this ongoing series—the more miraculous it seems that the doomsday machines which we and the Russians have built and maintained have not yet triggered each other. At the same time, the clearer it becomes that we could and that we must dismantle them.

     

    Daniel Ellsberg is a member of the Nuclear Age Peace Foundation’s Advisory Council and is currently a Foundation Distinguished Fellow. He worked in the State and Defense departments under Presidents Kennedy, Johnson and Nixon. He released the Pentagon Papers to the press in 1971. Daniel Ellsberg is the recipient of the Foundation’s 2005 Distinguished Peace Leadership Award.

  • How Confident Should a Nuclear Optimist Be?

    Nuclear optimism is a school of thought which argues that more nuclear weapons make the world safer. Given that our nation and Russia each has around 10,000 such weapons in its arsenal, such thinking is more widespread than might be thought. The following assessment is therefore much more than an academic exercise, and has vital implications for humanity’s future.

    In a five-page essay in the September 7 issue of Newsweek, Jonathan Tepperman explains Why Obama Should Learn to Love the Bomb by quoting the dean of nuclear optimism, Prof. Kenneth Waltz: “We now have 64 years of experience since Hiroshima. It’s striking and against all historical precedent that for that substantial period, there has not been any war among nuclear states.” Tepperman calls for “coldblooded calculations about just how dangerous possessing them [nuclear weapons] actually is.” This response rises to that challenge and shows that the data used to justify nuclear optimism is highly misleading.

    In the same way that life-insurance companies utilize statistical analysis to produce cold blooded projections of fatality rates for individuals, statistics tells us that, to be 95% confident of our statements, we cannot project the last 64 years of nuclear non-use more than 21 years into the future. And, with the fate of the earth at stake, a higher confidence level would seem appropriate. To be 99% confident about our statements, nuclear optimism can only be justified for another 14 years. Statistics does not rule out that we might survive significantly longer than these time horizons, but it does say that the data thus far cannot be used to justify such hopes with any degree of confidence.

    To understand why we can only be confident of surviving time horizons significantly shorter than the 64 years of non-use already experienced, it helps to consider related “space shuttle optimism” arguments that led to the loss of Challenger and her crew. The engineers who had designed the shuttle’s booster engine tried to delay Challenger’s final launch because the weather that morning was unusually cold, and previous cold weather launches had a higher incidence of partial “burn through” on O-rings designed to seal the booster. But those at NASA responsible for the launch decision suffered from the common misperception that the shuttle’s prior 23 successful launches provided ample evidence that it was safe to proceed with launch number 24. Instead, as we now know, that launch suffered catastrophic burn through of the O-rings, with resultant loss of the shuttle and her entire crew.

    NASA’s optimistic reasoning was literally dead wrong. Even 23 perfect launches would not have provided sufficient evidence to confidently predict success for launch number 24, and previous near misses, in the form of partial O-ring burn through, made optimism even more outrageous and unsupportable. The unassailable, cold blooded conclusion provided by statistics and Challenger’s deadly lesson is that 64 years of nuclear non-use, particularly with near misses such as the Cuban missile crisis, is no cause for nuclear optimism.

    Martin E. Hellman is a member of the National Academy of Engineering and Professor Emeritus at Stanford University. His current project applies risk analysis to nuclear deterrence, and is described in detail at NuclearRisk.org.
  • Still Loving the Bomb After All These Years

    Still Loving the Bomb After All These Years

    Jonathan Tepperman’s article in the September 7, 2009 issue of Newsweek, “Why Obama Should Learn to Love the Bomb,” provides a novel but frivolous argument that nuclear weapons “may not, in fact, make the world more dangerous….” Rather, in Tepperman’s world, “The bomb may actually make us safer.” Tepperman shares this world with Kenneth Waltz, a University of California professor emeritus of political science, who Tepperman describes as “the leading ‘nuclear optimist.’”

    Waltz expresses his optimism in this way: “We’ve now had 64 years of experience since Hiroshima. It’s striking and against all historical precedent that for that substantial period, there has not been any war among nuclear states.” Actually, there were a number of proxy wars between nuclear weapons states, such as those in Korea, Vietnam and Afghanistan, and some near disasters, the most notable being the 1962 Cuban Missile Crisis. Waltz’s logic is akin to observing a man falling from a high rise building, and noting that he had already fallen for 64 floors without anything bad happening to him, and concluding that so far it looked so good that others should try it. Dangerous logic!

    Tepperman builds upon Waltz’s logic, and concludes “that all states are rational,” even though their leaders may have a lot of bad qualities, including being “stupid, petty, venal, even evil….” He asks us to trust that rationality will always prevail when there is a risk of nuclear retaliation, because these weapons make “the costs of war obvious, inevitable, and unacceptable.” Actually, he is asking us to do more than trust in the rationality of leaders; he is asking us to gamble the future on this proposition. “The iron logic of deterrence and mutually assured destruction is so compelling,” Tepperman argues, “it’s led to what’s known as the nuclear peace….” But if this is a peace worthy of the name, which it isn’t, it certainly is not one on which to risk the future of civilization. One irrational leader with control over a nuclear arsenal could start a nuclear conflagration, resulting in a global Hiroshima.

    Tepperman celebrates “the iron logic of deterrence,” but deterrence is a theory that is far from rooted in “iron logic.” It is a theory based upon threats that must be effectively communicated and believed. Leaders of Country A with nuclear weapons must communicate to other countries (B, C, etc.) the conditions under which A will retaliate with nuclear weapons. The leaders of the other countries must understand and believe the threat from Country A will, in fact, be carried out. The longer that nuclear weapons are not used, the more other countries may come to believe that they can challenge Country A with impunity from nuclear retaliation. The more that Country A bullies other countries, the greater the incentive for these countries to develop their own nuclear arsenals. Deterrence is unstable and therefore precarious.

    Most of the countries in the world reject the argument, made most prominently by Kenneth Waltz, that the spread of nuclear weapons makes the world safer. These countries joined together in the Nuclear Non-Proliferation Treaty (NPT) to prevent the spread of nuclear weapons, but they never agreed to maintain indefinitely a system of nuclear apartheid in which some states possess nuclear weapons and others are prohibited from doing so. The principal bargain of the NPT requires the five NPT nuclear weapons states (US, Russia, UK, France and China) to engage in good faith negotiations for nuclear disarmament, and the International Court of Justice interpreted this to mean complete nuclear disarmament in all its aspects.

    Tepperman seems to be arguing that seeking to prevent the proliferation of nuclear weapons is bad policy, and that nuclear weapons, because of their threat, make efforts at non-proliferation unnecessary and even unwise. If some additional states, including Iran, developed nuclear arsenals, he concludes that wouldn’t be so bad “given the way that bombs tend to mellow behavior.” Those who oppose Tepperman’s favorable disposition toward the bomb, he refers to as “nuclear pessimists.” These would be the people, and I would certainly be one of them, who see nuclear weapons as presenting an urgent danger to our security, our species and our future.

    Tepperman finds that when viewed from his “nuclear optimist” perspective, “nuclear weapons start to seem a lot less frightening.” “Nuclear peace,” he tells us, “rests on a scary bargain: you accept a small chance that something extremely bad will happen in exchange for a much bigger chance that something very bad – conventional war – won’t happen.” But the “extremely bad” thing he asks us to accept is the end of the human species. Yes, that would be serious. He also doesn’t make the case that in a world without nuclear weapons, the prospects of conventional war would increase dramatically. After all, it is only an unproven supposition that nuclear weapons have prevented wars, or would do so in the future. We have certainly come far too close to the precipice of catastrophic nuclear war.

    As an ultimate celebration of the faulty logic of deterrence, Tepperman calls for providing any nuclear weapons state with a “survivable second strike option.” Thus, he not only favors nuclear weapons, but finds the security of these weapons to trump human security. Presumably he would have President Obama providing new and secure nuclear weapons to North Korea, Pakistan and any other nuclear weapons states that come along so that they will feel secure enough not to use their weapons in a first-strike attack. Do we really want to bet the human future that Kim Jong-Il and his successors are more rational than Mr. Tepperman?

    David Krieger is President of the Nuclear Age Peace Foundation (www.wagingpeace.org) and a Councilor on the World Future Council. To read the Hiroshima Peace Declaration, click here.
  • Japan’s Election and Anti-Nuclear Momentum

    This article was originally published by Foreign Policy In Focus

    Although the smashing victory of the opposition Democratic Party in Japan’s parliamentary elections of August 30 had numerous causes, one of the results will be a strengthening of the campaign for a nuclear weapons-free world.

    In the past few years, Japan’s long-ruling conservatives — grouped in the misnamed Liberal Democratic Party (LDP) — had shown increasing signs of dispensing with Japan’s nuclear-free status. Pointing to North Korea’s development of a nuclear capability, party officials had publicly floated the idea of Japan’s acquiring nuclear weapons. More recently, a former government official revealed what many Japanese already suspected: Decades ago, an LDP government had agreed to allow stopovers in Japan by U.S. military aircraft and vessels carrying nuclear weapons. Outside observers even began to voice the idea that Japan’s LDP government, by insisting on U.S. nuclear guarantees, might undermine plans by the Obama administration to reduce the importance of nuclear weapons in U.S. defense policy.

    But the stunning victory by Democratic Party of Japan (DPJ), with its sharply antinuclear stand, has altered this situation dramatically. Pointing to the nation’s “Three Non-Nuclear Principles” — a 1967 government pledge not to possess, manufacture, or introduce nuclear weapons into Japan — Democratic Party leader Yukio Hatoyama promised to work to codify these principles into law. Nor is the party’s antinuclear vision limited to Japan. The DPJ endorses a regional nuclear-free zone. And as recently as this August, Hatoyama told a public gathering that “realizing a nuclear-free world as called for by U.S. President Barack Obama is exactly the moral mission of our country.”

    The DPJ’s victory gives added momentum to a campaign for nuclear abolition that has recently transitioned from an apparently utopian vision to pragmatic politics.

    Growing Movement

    Long before these new U.S. and Japanese officials turned their attention to abolishing the world’s vast nuclear arsenals, citizens groups had organized vigorous campaigns to do just that. And these nuclear disarmament campaigns played a major role in convincing governments to pull back from the nuclear arms race and accept nuclear cutbacks. As a result, the number of nuclear weapons around the world declined substantially — from some 70,000 at the height of the Cold War to fewer than 24,000 today.

    Furthermore, in the last few years the call for nuclear disarmament has turned into a demand for a nuclear-free world. In January 2007 and again in January 2008, a group of former top U.S. national security officials wrote op-ed pieces in the Wall Street Journal contending that, as the very existence of nuclear weapons raised profound dangers for human survival, the U.S. government should commit itself to the goal of nuclear abolition. During the recent U.S. presidential campaign, Obama repeatedly spoke out for building a nuclear-free world, as he did again this April. On this last occasion, addressing an audience in Prague, he committed the U.S. government to “seek the peace and security of a world without nuclear weapons.” Subsequently, U.N. Secretary General Ban Ki Moon announced his own plan to spur the world forward “on its journey to a world free of nuclear weapons.”

    A number of important constituencies also champion this goal. In 2008, the U.S. Conference of Mayors unanimously adopted a resolution supporting the global elimination of nuclear weapons by 2020. It followed this up in 2009 by unanimously passing a resolution “enthusiastically” welcoming “the new leadership and multilateralism that the United States is demonstrating toward achievement of a nuclear-weapon-free world” and calling upon Obama “to announce at the 2010 Nuclear Non-Proliferation Treaty Review Conference” the beginning of negotiations for “an international agreement to abolish nuclear weapons by the year 2020.”

    The U.S. Conference of Catholic Bishops, relatively silent on nuclear disarmament since its dramatic antinuclear pronouncements of 1983, displayed a new interest in the subject in 2009. On April 8, speaking on behalf of the Conference, Bishop Howard Hubbard of Albany welcomed the Obama administration’s leadership “toward a nuclear-free world” and declared that the Conference “look[ed] forward to working with the Administration and Congress in supporting legislation” toward that goal. On July 29, in a keynote talk at a “Deterrence Symposium” hosted by the U.S. Strategic Command, Archbishop Edwin O’Brien of Baltimore — a member of the Conference’s Committee on International Justice and Peace — startled the military-oriented gathering by insisting that “our world and its leaders must stay focused on the destination of a nuclear-weapons-free world.”

    Labor and Peace

    The labor movement has also started to mobilize against nuclear weapons. On July 10, 2009, the International Trade Union Confederation — representing 170 million workers in 157 countries (including the members of the AFL-CIO) — launched an international campaign for nuclear disarmament. A focal point of the campaign is a petition calling for a nuclear disarmament treaty signed by all U.N. member states. According to the world labor confederation, the campaign was “being run in cooperation with the worldwide ‘Mayors for Peace’ group,” headed by Hiroshima Mayor Tadatoshi Akiba, which has called for creating a nuclear-free world by 2020.

    Although the U.S. peace movement has been preoccupied with ending the wars in Iraq and Afghanistan, as well as with averting war with Iran, it recently has increased its efforts around the theme of a nuclear-free world, especially in connection with the run-up to the May 2010 NPT review conference at the United Nations. Beginning in the summer of 2009, peace and disarmament organizations began circulating a nuclear abolition petition directed to Obama, calling upon the administration to use the occasion of the conference to announce negotiations for a treaty abolishing nuclear weapons. There are also plans afoot for a large antinuclear demonstration at the United Nations on May 2, 2010, as well as for smaller events designed to rally support for a nuclear-free world.

    At the moment, the degree to which the Japanese elections will increase the clout of this burgeoning nuclear abolition campaign remains uncertain. The DPJ faces a number of challenges if it is to implement its nuclear-free promises. Although public sentiment in Japan is strongly antinuclear, there is also a rising fear of North Korea’s nuclear program — a fact that might lead to an erosion of the new administration’s nuclear-free doctrine. Compromise on maintaining a nuclear-free Japan is alluring, as Japan has the scientific and technological capability to produce nuclear weapons easily and quickly. Furthermore, many Japanese (and particularly LDP members), though uneasy about Japan’s development of nuclear weapons, feel comfortable under the U.S. nuclear umbrella. Thus, they might resist international efforts to create a nuclear-free world.

    Even so, the DPJ’s election sweep should hearten opponents of nuclear weapons, for it provides not only a symbolic victory for antinuclear forces but a potentially significant shift in the nuclear policy of a major nation. Above all, it serves as an indication that, around the world, the antinuclear momentum is growing.

    Lawrence Wittner is professor of history at the State University of New York–Albany and a Nuclear Age Peace Foundation Associate . His latest book is Confronting the Bomb: A Short History of the World Nuclear Disarmament Movement (Stanford University Press).

  • Statement of Hope in a Year of Opportunity: Seeking a Nuclear Weapon-Free World

    This statement was adopted by the Central Committee of the World Council of Churches on September 1, 2009

    The production and deployment as well as the use of nuclear weapons are a crime against humanity and must be condemned on ethical and theological grounds.” -William Thompson, Presbyterian Church USA, Vancouver Assembly, 1983

    1. The international community is in a season of hope. Eminent world and national figures now advocate for a world without nuclear weapons, reversing longstanding policies. Global majorities for nuclear disarmament are astir in cities, parliaments, the sciences and religions. President Barack Obama has acknowledged that, as the only nation ever to use nuclear weapons in war, the United States must lead in their elimination. The 65-nation United Nations (UN) Conference on Disarmament has adopted a program of work after a dozen years of political and procedural stalemate. Africa has brought its 1996 nuclear-weapon-free zone (NWFZ) treaty into force and, with it, nuclear weapons are banned from a majority of the world’s countries for the first time. These positive developments must be encouraged and deepened.
    2. Seven decades into the nuclear age, the onus for international peace bears down ever harder on the five permanent members of the UN Security Council. Their possession of nuclear weapons is fundamentally incompatible with their privileged responsibility for international peace and security. The 183 non-nuclear-weapon states still await the five nuclear states to fulfil the pledge to eliminate their nuclear weapons.
    3. Meanwhile, nuclear forces remain on high alert, nuclear know-how, technology and materials are accessible to diverse groups, more nuclear power plants cause increased security and pollution problems, militaries routinely break norms on the use of force and the protection of civilians, and progress toward global public goods is pre-empted by national sovereignty. India, Pakistan, Israel, and, in all likelihood, North Korea possess nuclear weapons outside the treaty. The time to act is now.
    4. It is essential for the international community to face up to this great challenge together and to take advantage of a number of promising opportunities that the coming year presents. Churches, international civil society groups, and a world public will be watching governments for convincing evidence of progress, while taking responsibility for action and advocacy themselves. The focus for participation and concern includes:
    • International Day of Peace, 21 September 2009 – The UN-sponsored day merits wide observance. This year it comes with 100 reasons to disarm and builds on the UN secretary general’s Five Point Proposal for nuclear disarmament.
    • International Day of Prayer for Peace, 21 September 2009 – In an agreement with the UN, and as part of the Decade to Overcome Violence, the World Council of Churches (WCC) invites member churches worldwide to make this an annual day of prayer for peace.
    • US president chairs UN Security Council, 24 September 2009 – A special disarmament session for heads of state chaired by President Obama presents a unique opportunity for the Council’s permanent members to acknowledge the essential link between nuclear disarmament and non-proliferation. A collective commitment to far greater transparency in reporting on their nuclear arsenals would be a welcome first step in turning today’s inspiring disarmament rhetoric into action. Transparency is feasible, indispensable and long overdue.
    • UN General Assembly and its First Committee, September-October 2009 – With the spectre of renewed stalemate arising again at the Conference on Disarmament (CD) in Geneva, remedial action at the General Assembly in New York may be needed. If the CD cannot negotiate a Fissile Materials Cut-off Treaty now, as it has agreed, it may be necessary for the UN General Assembly and First Committee to charge another appropriate body with the task.
    • Strategic Arms Reduction Treaty (START) renewal, 5 December 2009 – The US and Russia have added hope to this year of opportunity by commencing negotiations. It is urgent that START II sets the target for weapons reductions at the lowest stated level, namely 1,500 nuclear warheads each.
    • African Nuclear-Weapon-Free Zone – We salute the African states that have ratified the Treaty of Pelindaba and brought it into force, most recently Burundi, Malawi, Mozambique and Ethiopia. We welcome Namibia’s progress in this regard and urge completion of all remaining ratifications. We ask that Russia and the US join China, Britain and France in ratifying the treaty protocols that give Africa added protections. Africa’s success demonstrates the new leadership of a 116-country world majority in protecting national territory from nuclear dangers. The Southern Hemisphere and much of the global South thus send an urgent signal to the nuclear-dominated north.
    • Meeting of nuclear-weapon-free zones, April 2010 – An important political and geographic majority will gather prior to the 2010 Nuclear Non-Proliferation Treaty (NPT) Review Conference. Its agenda is likely to include confidence-building measures these zones can undertake, particularly in areas of tension including the Middle East and northeast Asia. Representatives from civil societies, including churches, will be present. States that have established NWFZs will seek to consolidate their strength around practical measures. These include accessions to existing treaties, security protocols with nuclear weapon states, and expert groups to address key issues for future NWFZs.
    • Conclusion of the North Atlantic Treaty Organization (NATO) security policy review, 2010 – The WCC, the National Council of the Churches of Christ in the US, the Canadian Council of Churches and the Conference of European Churches have called upon NATO to abandon the notion that nuclear weapons preserve peace, and to take full advantage of the current political momentum to eliminate its reliance on nuclear arms, including the removal of foreign nuclear weapons based in five NATO member countries. The recent joint letter to NATO leaders stated that “security must be sought through constructive engagement with neighbours and that authentic security is found in affirming and enhancing human interdependence in God’s one creation”.
    • NPT Review Conference, 2010 – By this much-anticipated mid-year meeting, the nuclear-weapon states must have made agreements that confirm their good faith commitment to fulfil more of their disarmament obligations. At minimum, this will include entry into force of the Comprehensive Test Ban Treaty, consensus on an advanced draft of the Fissile Materials Cut-off Treaty, and agreement on the transparency measures mentioned above. It will also require clear commitment to progress in the next cycle of the NPT including a plan to begin intensive work on a Nuclear Weapons Convention.

    The international community stands before a year of opportunity. The central committee of the WCC, meeting in Geneva, Switzerland, 26 August – 2 September 2009:

    A. Encourages governments and other parties involved to look to this year of disarmament opportunities with urgency and hope.

    B. Challenges the nuclear-weapon states to fulfil their “unequivocal undertaking to accomplish the total elimination of their nuclear arsenals leading to nuclear disarmament” (2000 Nuclear Non-Proliferation Treaty Review Conference).

    C. Invites churches to support their governments in making whole regions of the world safer from nuclear weapons through the establishment and strengthening of nuclear weapon free zones.

    D. Calls upon member churches to declare to their national leaders, “Transform opportunity into action. Signal your intentions to the global majority who want the elimination of nuclear weapons, and supply the proof of progress. Let a year of cooperation reverse a decade of nuclear deadlock. Reject weapons that should never have been made and that must never be used. Begin now to fulfil the international treaty promise to free the world from nuclear weapons. Put a deadline on this obligation to us all.”

    Prayer

    The following prayer is offered as a resource to enable the churches’ engagement with the issue articulated above:

    God of all times and seasons, You have presented us with a season of hope and a time of opportunity for a nuclear-weapon-free world. May we not squander this opportunity but find ways of working together to make a difference for the whole global family.

    Fill us with the vision of your kingdom, where the lion lies down with the lamb, and weapons are turned into farming tools. Empower us to declare that authentic security is found in enhancing our human interdependence in your one creation. Enable us to live this declaration in our relationships with neighbors, near and far and to you be all glory and praise, now and forever.

  • Japan’s Election and Anti-Nuclear Momentum

    This article was originally published by Foreign Policy In Focus

    Although the smashing victory of the opposition Democratic Party in Japan’s parliamentary elections of August 30 had numerous causes, one of the results will be a strengthening of the campaign for a nuclear weapons-free world.

    In the past few years, Japan’s long-ruling conservatives — grouped in the misnamed Liberal Democratic Party (LDP) — had shown increasing signs of dispensing with Japan’s nuclear-free status. Pointing to North Korea’s development of a nuclear capability, party officials had publicly floated the idea of Japan’s acquiring nuclear weapons. More recently, a former government official revealed what many Japanese already suspected: Decades ago, an LDP government had agreed to allow stopovers in Japan by U.S. military aircraft and vessels carrying nuclear weapons. Outside observers even began to voice the idea that Japan’s LDP government, by insisting on U.S. nuclear guarantees, might undermine plans by the Obama administration to reduce the importance of nuclear weapons in U.S. defense policy.

    But the stunning victory by Democratic Party of Japan (DPJ), with its sharply antinuclear stand, has altered this situation dramatically. Pointing to the nation’s “Three Non-Nuclear Principles” — a 1967 government pledge not to possess, manufacture, or introduce nuclear weapons into Japan — Democratic Party leader Yukio Hatoyama promised to work to codify these principles into law. Nor is the party’s antinuclear vision limited to Japan. The DPJ endorses a regional nuclear-free zone. And as recently as this August, Hatoyama told a public gathering that “realizing a nuclear-free world as called for by U.S. President Barack Obama is exactly the moral mission of our country.”

    The DPJ’s victory gives added momentum to a campaign for nuclear abolition that has recently transitioned from an apparently utopian vision to pragmatic politics.

    Growing Movement

    Long before these new U.S. and Japanese officials turned their attention to abolishing the world’s vast nuclear arsenals, citizens groups had organized vigorous campaigns to do just that. And these nuclear disarmament campaigns played a major role in convincing governments to pull back from the nuclear arms race and accept nuclear cutbacks. As a result, the number of nuclear weapons around the world declined substantially — from some 70,000 at the height of the Cold War to fewer than 24,000 today.

    Furthermore, in the last few years the call for nuclear disarmament has turned into a demand for a nuclear-free world. In January 2007 and again in January 2008, a group of former top U.S. national security officials wrote op-ed pieces in the Wall Street Journal contending that, as the very existence of nuclear weapons raised profound dangers for human survival, the U.S. government should commit itself to the goal of nuclear abolition. During the recent U.S. presidential campaign, Obama repeatedly spoke out for building a nuclear-free world, as he did again this April. On this last occasion, addressing an audience in Prague, he committed the U.S. government to “seek the peace and security of a world without nuclear weapons.” Subsequently, U.N. Secretary General Ban Ki Moon announced his own plan to spur the world forward “on its journey to a world free of nuclear weapons.”

    A number of important constituencies also champion this goal. In 2008, the U.S. Conference of Mayors unanimously adopted a resolution supporting the global elimination of nuclear weapons by 2020. It followed this up in 2009 by unanimously passing a resolution “enthusiastically” welcoming “the new leadership and multilateralism that the United States is demonstrating toward achievement of a nuclear-weapon-free world” and calling upon Obama “to announce at the 2010 Nuclear Non-Proliferation Treaty Review Conference” the beginning of negotiations for “an international agreement to abolish nuclear weapons by the year 2020.”

    The U.S. Conference of Catholic Bishops, relatively silent on nuclear disarmament since its dramatic antinuclear pronouncements of 1983, displayed a new interest in the subject in 2009. On April 8, speaking on behalf of the Conference, Bishop Howard Hubbard of Albany welcomed the Obama administration’s leadership “toward a nuclear-free world” and declared that the Conference “look[ed] forward to working with the Administration and Congress in supporting legislation” toward that goal. On July 29, in a keynote talk at a “Deterrence Symposium” hosted by the U.S. Strategic Command, Archbishop Edwin O’Brien of Baltimore — a member of the Conference’s Committee on International Justice and Peace — startled the military-oriented gathering by insisting that “our world and its leaders must stay focused on the destination of a nuclear-weapons-free world.”

    Labor and Peace

    The labor movement has also started to mobilize against nuclear weapons. On July 10, 2009, the International Trade Union Confederation — representing 170 million workers in 157 countries (including the members of the AFL-CIO) — launched an international campaign for nuclear disarmament. A focal point of the campaign is a petition calling for a nuclear disarmament treaty signed by all U.N. member states. According to the world labor confederation, the campaign was “being run in cooperation with the worldwide ‘Mayors for Peace’ group,” headed by Hiroshima Mayor Tadatoshi Akiba, which has called for creating a nuclear-free world by 2020.

    Although the U.S. peace movement has been preoccupied with ending the wars in Iraq and Afghanistan, as well as with averting war with Iran, it recently has increased its efforts around the theme of a nuclear-free world, especially in connection with the run-up to the May 2010 NPT review conference at the United Nations. Beginning in the summer of 2009, peace and disarmament organizations began circulating a nuclear abolition petition directed to Obama, calling upon the administration to use the occasion of the conference to announce negotiations for a treaty abolishing nuclear weapons. There are also plans afoot for a large antinuclear demonstration at the United Nations on May 2, 2010, as well as for smaller events designed to rally support for a nuclear-free world.

    At the moment, the degree to which the Japanese elections will increase the clout of this burgeoning nuclear abolition campaign remains uncertain. The DPJ faces a number of challenges if it is to implement its nuclear-free promises. Although public sentiment in Japan is strongly antinuclear, there is also a rising fear of North Korea’s nuclear program — a fact that might lead to an erosion of the new administration’s nuclear-free doctrine. Compromise on maintaining a nuclear-free Japan is alluring, as Japan has the scientific and technological capability to produce nuclear weapons easily and quickly. Furthermore, many Japanese (and particularly LDP members), though uneasy about Japan’s development of nuclear weapons, feel comfortable under the U.S. nuclear umbrella. Thus, they might resist international efforts to create a nuclear-free world.

    Even so, the DPJ’s election sweep should hearten opponents of nuclear weapons, for it provides not only a symbolic victory for antinuclear forces but a potentially significant shift in the nuclear policy of a major nation. Above all, it serves as an indication that, around the world, the antinuclear momentum is growing.

    Lawrence Wittner is professor of history at the State University of New York–Albany and a Nuclear Age Peace Foundation Associate . His latest book is Confronting the Bomb: A Short History of the World Nuclear Disarmament Movement (Stanford University Press).

  • The Spirit of Hiroshima

    The Spirit of Hiroshima

    Mayor Tadatoshi Akiba of Hiroshima city is the president of Mayors for Peace, an international organization of over 3,000 cities, with a vision of ridding the world of nuclear weapons by the year 2020. He is a tireless campaigner, on behalf of his city and the survivors of the bombing, for a world free of nuclear weapons.

    On August 6, 2009, the 64th anniversary of the atomic bombing of Hiroshima, Mayor Akiba presented the city’s annual Peace Declaration to a large audience in Hiroshima Peace Memorial Park. The Declaration, which has since been circulated around the world, expresses the “Spirit of Hiroshima,” a spirit characterized by forgiveness, struggle for peace, and determination that no other city suffers the same fate as did the cities of Hiroshima and Nagasaki.

    Hiroshima is both a city and a symbol. As a city, it is modern and pleasant, having been rebuilt from the ashes and debris of devastation. As a symbol, Hiroshima’s fate is both a warning siren to humanity and a glimpse of a possible future for our world. It is the greatest hope of the people of Hiroshima that their past will not become humanity’s future. In the 2009 Hiroshima Peace Declaration, Mayor Akiba referred to the atomic bomb as a “weapon of human extinction.” This is an important insight. Too often, we take nuclear weapons for granted as part of the background of our lives, but we should not for a moment forget their existence and their capacity to annihilate the human species.

    Mayor Akiba spoke of “the fervent desire” of the survivors of the atomic bombing of Hiroshima that “No one else should ever suffer as we did,” underlining the central element of the Spirit of Hiroshima. The survivors are growing older, and they must pass the torch soon to younger generations throughout the world committed to ending the threat that nuclear weapons pose to all humanity.

    Mayor Akiba also praised President Obama for his speech in Prague on April 5, 2009, and particularly for his statement that the United States, “…as the only nuclear power to have used a nuclear weapon…has a moral responsibility to act…and take concrete steps towards a world without nuclear weapons.” Mayor Akiba coined a term for the global majority that supports the abolition of nuclear weapons, the “Obamajority,” and called upon the rest of the world to join that majority. He emphasized the importance of the year 2020 in order to allow as many survivors of the bombing as possible “to enter a world without nuclear weapons.”

    In the Declaration, Mayor Akiba also offered a creative proposal for restructuring the United Nations in order to “create a mechanism by which the voices of the people can be delivered directly into the UN.” He proposed creating a “Lower House” in the international organization “made up of 100 cities that have suffered major tragedies due to war and other disasters, plus another 100 cities with large populations, totaling 200 cities.” Then, the UN General Assembly would become the organization’s “Upper House.”

    In concluding the Declaration, Mayor Akiba emphasized the power of the people and their responsibility to abolish nuclear weapons. It is a message that Americans should take seriously, for the good of America and the world. President Obama has committed the United States to attaining a world free of nuclear weapons. Now the American people must encourage and support that vision and help provide the political will that will be required to achieve it.

    David Krieger is President of the Nuclear Age Peace Foundation (www.wagingpeace.org) and a Councilor on the World Future Council. To read the Hiroshima Peace Declaration, click here.
  • 2009 Hiroshima Peace Declaration

    This declaration was read by Mayor Akiba at the Hiroshima Peace Memorial Park on August 6, 2009

    That weapon of human extinction, the atomic bomb, was dropped on the people of Hiroshima sixty-four years ago. Yet the hibakusha’s suffering, a hell no words can convey, continues. Radiation absorbed 64 years earlier continues to eat at their bodies, and memories of 64 years ago flash back as if they had happened yesterday.

    Fortunately, the grave implications of the hibakusha experience are granted legal support. A good example of this support is the courageous court decision humbly accepting the fact that the effects of radiation on the human body have yet to be fully elucidated. The Japanese national government should make its assistance measures fully appropriate to the situations of the aging hibakusha, including those exposed in “black rain areas” and those living overseas. Then, tearing down the walls between its ministries and agencies, it should lead the world as standard-bearer for the movement to abolish nuclear weapons by 2020 to actualize the fervent desire of hibakusha that “No one else should ever suffer as we did.”

    In April this year, US President Obama speaking in Prague said, “…as the only nuclear power to have used a nuclear weapon, the United States has a moral responsibility to act.” And “…take concrete steps towards a world without nuclear weapons.” Nuclear weapons abolition is the will not only of the hibakusha but also of the vast majority of people and nations on this planet. The fact that President Obama is listening to those voices has solidified our conviction that “the only role for nuclear weapons is to be abolished.”

    In response, we support President Obama and have a moral responsibility to act to abolish nuclear weapons. To emphasize this point, we refer to ourselves, the great global majority, as the “Obamajority,” and we call on the rest of the world to join forces with us to eliminate all nuclear weapons by 2020. The essence of this idea is embodied in the Japanese Constitution, which is ever more highly esteemed around the world.

    Now, with more than 3,000 member cities worldwide, Mayors for Peace has given concrete substance to our “2020 Vision” through the Hiroshima-Nagasaki Protocol, and we are doing everything in our power to promote its adoption at the NPT Review Conference next year. Once the Protocol is adopted, our scenario calls for an immediate halt to all efforts to acquire or deploy nuclear weapons by all countries, including the Democratic People’s Republic of Korea, which has so recently conducted defiant nuclear tests; visits by leaders of nuclear-weapon states and suspect states to the A-bombed cities; early convening of a UN Special Session devoted to Disarmament; an immediate start to negotiations with the goal of concluding a nuclear weapons convention by 2015; and finally, to eliminate all nuclear weapons by 2020. We will adopt a more detailed plan at the Mayors for Peace General Conference that begins tomorrow in Nagasaki.

    The year 2020 is important because we wish to enter a world without nuclear weapons with as many hibakusha as possible. Furthermore, if our generation fails to eliminate nuclear weapons, we will have failed to fulfill our minimum responsibility to those that follow.

    Global Zero, the International Commission on Nuclear Non-proliferation and Disarmament and others of influence throughout the world have initiated positive programs that seek the abolition of nuclear weapons. We sincerely hope that they will all join the circle of those pressing for 2020.

    As seen in the anti-personnel landmine ban, liberation from poverty through the Grameen Bank, the prevention of global warming and other such movements, global democracy that respects the majority will of the world and solves problems through the power of the people has truly begun to grow. To nurture this growth and go on to solve other major problems, we must create a mechanism by which the voices of the people can be delivered directly into the UN. One idea would be to create a “Lower House” of the United Nations made up of 100 cities that have suffered major tragedies due to war and other disasters, plus another 100 cities with large populations, totaling 200 cities. The current UN General Assembly would then become the “Upper House.”

    On the occasion of the Peace Memorial Ceremony commemorating the 64th anniversary of the atomic bombing, we offer our solemn, heartfelt condolence to the souls of the A-bomb victims, and, together with the city of Nagasaki and the majority of Earth’s people and nations, we pledge to strive with all our strength for a world free from nuclear weapons.

    We have the power. We have the responsibility. And we are the Obamajority. Together, we can abolish nuclear weapons. Yes, we can.

    Tadatoshi Akiba is Mayor of Hiroshima, Japan and President of Mayors for Peace (www.mayorsforpeace.org).