Now this is provocative scholarship

So let's talk about the provocative article written by two academics that has a whole country's foreign policy community in a lather. No, not that article -- the authors are still ducking the open debate they claim to want. I'm talking about the one that has exercised the entire Russian military-industrial complex. In the March/April issue of Foreign Affairs, Keir Lieber and Daryl Press make a startling claim about the balance of nuclear terror: For almost half a century, the world's most powerful nuclear states have been locked in a military stalemate known as mutual assured destruction (MAD). By the early 1960s, the nuclear arsenals of the United States and the Soviet Union had grown so large and sophisticated that neither country could entirely destroy the other's retaliatory force by launching first, even with a surprise attack. Starting a nuclear war was therefore tantamount to committing suicide.... This debate may now seem like ancient history, but it is actually more relevant than ever -- because the age of MAD is nearing an end. Today, for the first time in almost 50 years, the United States stands on the verge of attaining nuclear primacy. It will probably soon be possible for the United States to destroy the long-range nuclear arsenals of Russia or China with a first strike. This dramatic shift in the nuclear balance of power stems from a series of improvements in the United States' nuclear systems, the precipitous decline of Russia's arsenal, and the glacial pace of modernization of China's nuclear forces. Unless Washington's policies change or Moscow and Beijing take steps to increase the size and readiness of their forces, Russia and China -- and the rest of the world -- will live in the shadow of U.S. nuclear primacy for many years to come.... Since the Cold War's end, the U.S. nuclear arsenal has significantly improved. The United States has replaced the ballistic missiles on its submarines with the substantially more accurate Trident II D-5 missiles, many of which carry new, larger-yield warheads. The U.S. Navy has shifted a greater proportion of its SSBNs to the Pacific so that they can patrol near the Chinese coast or in the blind spot of Russia's early warning radar network. The U.S. Air Force has finished equipping its B-52 bombers with nuclear-armed cruise missiles, which are probably invisible to Russian and Chinese air-defense radar. And the air force has also enhanced the avionics on its B-2 stealth bombers to permit them to fly at extremely low altitudes in order to avoid even the most sophisticated radar. Finally, although the air force finished dismantling its highly lethal MX missiles in 2005 to comply with arms control agreements, it is significantly improving its remaining ICBMs by installing the MX's high-yield warheads and advanced reentry vehicles on Minuteman ICBMs, and it has upgraded the Minuteman's guidance systems to match the MX's accuracy. Even as the United States' nuclear forces have grown stronger since the end of the Cold War, Russia's strategic nuclear arsenal has sharply deteriorated. Russia has 39 percent fewer long-range bombers, 58 percent fewer ICBMs, and 80 percent fewer SSBNs than the Soviet Union fielded during its last days. The true extent of the Russian arsenal's decay, however, is much greater than these cuts suggest. What nuclear forces Russia retains are hardly ready for use. Russia's strategic bombers, now located at only two bases and thus vulnerable to a surprise attack, rarely conduct training exercises, and their warheads are stored off-base. Over 80 percent of Russia's silo-based ICBMs have exceeded their original service lives, and plans to replace them with new missiles have been stymied by failed tests and low rates of production. Russia's mobile ICBMs rarely patrol, and although they could fire their missiles from inside their bases if given sufficient warning of an attack, it appears unlikely that they would have the time to do so. The third leg of Russia's nuclear triad has weakened the most. Since 2000, Russia's SSBNs have conducted approximately two patrols per year, down from 60 in 1990. (By contrast, the U.S. SSBN patrol rate today is about 40 per year.) Most of the time, all nine of Russia's ballistic missile submarines are sitting in port, where they make easy targets. Moreover, submarines require well-trained crews to be effective. Operating a ballistic missile submarine -- and silently coordinating its operations with surface ships and attack submarines to evade an enemy's forces -- is not simple. Without frequent patrols, the skills of Russian submariners, like the submarines themselves, are decaying. Revealingly, a 2004 test (attended by President Vladimir Putin) of several submarine-launched ballistic missiles was a total fiasco: all either failed to launch or veered off course. The fact that there were similar failures in the summer and fall of 2005 completes this unflattering picture of Russia's nuclear forces. Compounding these problems, Russia's early warning system is a mess. Neither Soviet nor Russian satellites have ever been capable of reliably detecting missiles launched from U.S. submarines. (In a recent public statement, a top Russian general described his country's early warning satellite constellation as "hopelessly outdated.") Russian commanders instead rely on ground-based radar systems to detect incoming warheads from submarine-launched missiles. But the radar network has a gaping hole in its coverage that lies to the east of the country, toward the Pacific Ocean. If U.S. submarines were to fire missiles from areas in the Pacific, Russian leaders probably would not know of the attack until the warheads detonated. Russia's radar coverage of some areas in the North Atlantic is also spotty, providing only a few minutes of warning before the impact of submarine-launched warheads.... To determine how much the nuclear balance has changed since the Cold War, we ran a computer model of a hypothetical U.S. attack on Russia's nuclear arsenal using the standard unclassified formulas that defense analysts have used for decades. We assigned U.S. nuclear warheads to Russian targets on the basis of two criteria: the most accurate weapons were aimed at the hardest targets, and the fastest-arriving weapons at the Russian forces that can react most quickly. Because Russia is essentially blind to a submarine attack from the Pacific and would have great difficulty detecting the approach of low-flying stealthy nuclear-armed cruise missiles, we targeted each Russian weapon system with at least one submarine-based warhead or cruise missile. An attack organized in this manner would give Russian leaders virtually no warning. This simple plan is presumably less effective than Washington's actual strategy, which the U.S. government has spent decades perfecting. The real U.S. war plan may call for first targeting Russia's command and control, sabotaging Russia's radar stations, or taking other preemptive measures -- all of which would make the actual U.S. force far more lethal than our model assumes. According to our model, such a simplified surprise attack would have a good chance of destroying every Russian bomber base, submarine, and ICBM. [See Footnote #1] This finding is not based on best-case assumptions or an unrealistic scenario in which U.S. missiles perform perfectly and the warheads hit their targets without fail. Rather, we used standard assumptions to estimate the likely inaccuracy and unreliability of U.S. weapons systems. Moreover, our model indicates that all of Russia's strategic nuclear arsenal would still be destroyed even if U.S. weapons were 20 percent less accurate than we assumed, or if U.S. weapons were only 70 percent reliable, or if Russian ICBM silos were 50 percent "harder" (more reinforced, and hence more resistant to attack) than we expected. (Of course, the unclassified estimates we used may understate the capabilities of U.S. forces, making an attack even more likely to succeed.) To be clear, this does not mean that a first strike by the United States would be guaranteed to work in reality; such an attack would entail many uncertainties. Nor, of course, does it mean that such a first strike is likely. But what our analysis suggests is profound: Russia's leaders can no longer count on a survivable nuclear deterrent. Needless to say, this article has roiled the Russians just a bit. How much? Former Russian Prime Minister Yegor Gaidar has an op-ed in today's Financial Times scolding Lieber and Press: America is a free country and what these two authors wrote in their article, entitled "The Rise of US Nuclear Primacy", is their business. The trouble is, when addressing such a delicate issue, it would be good to understand the responsibilities that go with it.... There are plenty of Russians who have a similar global vision and believe that the US is preparing its capability for a nuclear strike against Russia. However, the publication of such ideas in a reputable US journal has had an explosive effect. Even Russian journalists and analysts not inclined to hysteria or anti-Americanism have viewed the article as an expression of the US official stance. As China is more closed, it is harder to gauge the authorities' reaction, although I fear it may be similar. Since Soviet times, I have disliked the word "provocation". But if someone had wanted to provoke Russia and China into close co-operation over missile and nuclear technologies, it would have been difficult to find a more skilful and elegant way of doing so. Soviet military planning rested on the concept of the "return-counterstrike". That meant if a threat from an enemy arose, a Soviet nuclear strike would follow. The chances of a comeback for this doctrine are stronger now - which will hardly help strengthen global security. Over the past few years, I and many colleagues have fought for Russia to maintain a sound economic policy amid high oil prices. Russia's Stabilisation Fund, into which windfall oil taxation revenues have been paid, constituted one element of that struggle. Now I fear the battle is lost. It is not hard to guess where the resources from this fund will now be directed. (emphasis added) I'm pretty sure that if Lieber and Press were actually the official voice of the U.S. government, this essay would never have seen the light of day. That last thing the DoD would want would be to publicly advertise nuclear primacy, for precisely the reasons Gaidar elaborates. No, Lieber and Press are doing what academics are supposed to do: generating hypotheses, testing them, and publishing the results,* no matter how uncomfortable the implications. And this implication is particularly disturbing: Is the United States intentionally pursuing nuclear primacy? Or is primacy an unintended byproduct of intra-Pentagon competition for budget share or of programs designed to counter new threats from terrorists and so-called rogue states? Motivations are always hard to pin down, but the weight of the evidence suggests that Washington is, in fact, deliberately seeking nuclear primacy. For one thing, U.S. leaders have always aspired to this goal. And the nature of the changes to the current arsenal and official rhetoric and policies support this conclusion. Read the whole thing. * Even though Foreign Affairs is not peer-reviewed, it should be noted that Lieber and Press the FA essay is an abridged version of a forthcoming scholarly article: "The End of MAD? The Nuclear Dimension of U.S. Primacy," International Security 30, no. 4 (Spring 2006). UPDATE: Leiber and Press respond to Gaidar in this letter to the editor: Mr Gaidar believes that these issues should not be discussed openly. We disagree. The wisdom of American, Russian and Chinese nuclear policies should be debated. But doing so requires a clear appreciation of the dramatic new realities of the strategic nuclear balance.