Bill
Clinton's forthcoming decision about whether to proceed with
national missile defenses (NMD) is the subject of growing
controversy in the US. By contrast, there is almost no controversy
about NMD in Europe, Russia, or China, where almost everyone seems
to believe that it is a bad idea.
Given the political and security interests at stake, it is in
everyone's interest to find ways to bridge these differences. But
it is essential that governments do not lock themselves into
positions that have the effect of transforming concerns about
stability and arms races into self-fulfilling prophecies. Critics
of missile defenses have a plan to avoid these pitfalls: simply
postpone a deployment decision. In a narrow sense, they are right:
no-one would argue that national missile defenses should get the
green light unless and until there is reasonable confidence that
the system will work.
There also is some merit to suggestions that Mr Clinton leave the
NMD decision to his successor rather than make such a momentous
call in the waning days of his presidency. Such proposals,
however, overlook the fact that deferring the decision by only a
few months would delay deployment by at least a year.
Lurking behind these arguments about timing is the concern that a
US decision to proceed with missile defenses would be
strategically destabilising. Europeans, Russians and Chinese,
however, have different reasons for reaching this shared
conclusion. Indeed, Europeans tend to have two somewhat
contradictory objections to NMD. Some argue that missile defenses
are unnecessary because the ballistic threat from rogue states is
not that serious and/or can be deterred by the same threat of
retaliation that served us so well during the cold war. To proceed
with NMD, they assert, would be not only a waste of defense
resources, but also a dangerous provocation to Russia. Invoking a
different cold war analogy, others argue that the threat is real,
but that a US decision to protect its homeland from ballistic
missile attacks by rogue states would "decouple" its
security from that of its allies.
Moscow's stated objections centre on the suspicion that
American missile defenses will sooner or later undermine the
credibility of the Russian strategic nuclear deterrent. It asserts
that it will have no choice but to respond by taking steps that
could have the effect of putting its current nuclear forces on a
more dangerous footing, or of launching a new arms race.
The Chinese (correctly) observe that virtually any missile defense
system big enough to defend against even a fledging North Korean
threat would degrade the credibility of China's current strategic
nuclear deterrent. And so we should not be surprised - much less
regard it as clear evidence of hostile intent - if China responds
by expanding its strategic nuclear forces.
What is perhaps most striking about many of the objections to
missile defenses, however, is that they seem to derive from
outdated cold war paradigms. Today the US, along with its former
adversaries and longtime allies, face a new common threat: the
proliferation of weapons of mass destruction.
Responding to this new threat demands fresh thinking about the
relationship between nuclear offences and nuclear defenses. In a
world in which the US and Russia are no longer nuclear
adversaries, missile defenses are not intrinsically destabilising.
On the contrary, limited defenses should be viewed as being
entirely consistent with the purposes and objectives of the
Anti-Ballistic Missile Treaty. In such a post-cold war world,
missile defense deployments need not spawn a new nuclear arms
race, but instead could - and perhaps should - be accompanied by
reductions in strategic offensive forces.
Nor should national missile defenses be regarded as a unilateral
US response to a peculiarly US problem that comes at the expense
of the interests of others. Missile defenses could be deployed in
Europe to protect Nato countries from rogue states. There is also
ample room for mutually beneficial co-operation with the Russians.
It will take time to create an impulse to co-operate, to translate
that impulse into concrete programmes with the US's European
allies and Russia, and to deal with ABM Treaty issues. In a
perfect world, this might counsel that the US postpone a decision
on NMD. But in the real world betting that the threat will wait
would be a risky. It also is important to note that it will take
at least five years following a deployment decision before the US
will be able to field even very modest missile defenses.
Those same five years, however, provide an opportunity to find
common ground. Whatever Mr Clinton decides this summer should mark
the beginning, not the end, of these efforts. The alternative is a
dangerous self-fulfilling prophecy that would constitute the real
threat to stability.