Pakistan is rehearsing the use of nuclear weapons, while India trains to fight on despite such use and subsequently escalate. What were once mere ideas and scenarios dreamed up by hawkish military planners and nuclear strategists have become starkly visible capabilities and commitments. When the time comes, policy makers and people on both sides will expect—and perhaps demand—that the Bomb be used.
Pakistan has long been explicit about its plans to use nuclear weapons to counter Indian conventional forces. Pakistan has developed “a variety of short range, low yield nuclear weapons,” claimed retired General Khalid Kidwai in March 2015. Kidwai is the founder—and from 2000 until 2014 ran—Pakistan’s Strategic Plans Division, which is responsible for managing the country’s nuclear weapons production complex and arsenal. These weapons, Kidwai said, have closed the “space for conventional war.” Echoing this message, Pakistani Foreign Secretary Aizaz Ahmad Chaudhry declared in October 2015 that his country might use these tactical nuclear weapons in a conflict with India. There already have been four wars between the two countries—in 1947, 1965, 1971, and 1999—as well as many war scares.
White House Press Secretary Josh Earnest explained in April 2016 that “we’re concerned by the increased security challenges that accompany growing stockpiles, particularly tactical nuclear weapons that are designed for use on the battlefield. And these systems are a source of concern because they’re susceptible to theft due to their size and mode of employment. Essentially, by having these smaller weapons, the threshold for their use is lowered, and the[re is] risk that a conventional conflict between India and Pakistan could escalate to include the use of nuclear weapons.”
Responding to US concerns, Kidwai has said that “Pakistan would not cap or curb its nuclear weapons programme or accept any restrictions.” The New York Times reported last year that so far, “an unknown number of the tactical weapons were built, but not deployed” by Pakistan.
India is making its own preparations for nuclear war. The Indian Army conducted a massive military exercise in April 2016 in the Rajasthan desert bordering Pakistan, involving tanks, artillery, armored personnel carriers, and 30,000 soldiers, to practice what to do if it is attacked with nuclear weapons on the battlefield. An Indian Army spokesman told the media, “our policy has been always that we will never use nuclear weapons first. But if we are attacked, we need to gather ourselves and fight through it. The simulation is about doing exactly that.”
This is not the first such Indian exercise. As long ago as May 2001, the Indian military conducted an exercise based on the possibility that Pakistan would use nuclear weapons on Indian armed forces. Indian generals and planners have anticipated such battlefield nuclear use by Pakistan since at least the 1990s.
Driving the current set of Indian strategies and capabilities is the army’s search for a way to use military force to retaliate against Pakistan for harboring terrorists who, from time to time, have launched devastating attacks inside India.
It could come to pass that Pakistan’s army uses nuclear weapons on its own territory to repel invading Indian tanks and troops. Pakistan’s planners may intend this first use of nuclear weapons as a warning shot, hoping to cause the Indians to stop and withdraw rather than risk worse. But while withdrawal would be one possible outcome, there would also be others. It is more likely, for instance, that the use of one—or even a few—Pakistani battlefield nuclear weapons would fail to dent Indian forces. While even a small nuclear weapon would be devastating in an urban environment, many such weapons may be required to have a decisive military impact on columns of well-dispersed battle tanks and soldiers who have practiced warfighting under nuclear attack.
India’s nuclear doctrine, meanwhile, is built on massive retaliation.
According to Admiral Vijay Shankar, a former head of Indian strategic nuclear forces, such retaliation would involve nuclear attacks on Pakistan’s cities. Kidwai describes such Indian threats as “bluster and blunder,” since they “are not taking into account the balance of nuclear weapons of Pakistan, which hopefully not, but has the potential to go back and give the same kind of dose to the other side.” For nuclear planners in both countries, threatening the slaughter of millions and mutual destruction seems to be the order of the day.
There are also risks short of war, of course. Nuclear weapon units integrated with conventional forces and ready to be dispersed on a battlefield pose critical command-and-control issues.
The implication is that communications between the nuclear headquarters and deployed units in the field will be perfectly reliable and secure even in wartime, and that commanders of individual units will not seek—or have the capability to launch—a nuclear strike unless authorized.
It is difficult to believe these claims. Peering through the fog of war, dizzied by developments on a rapidly evolving battlefield, confronting possible defeat, and fuelled by generations of animosity towards India as well as a thirst for revenge from previous wars, it cannot be guaranteed that a Pakistani nuclear commander will follow the rules.
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