THE RIPPLES IN THE REGION
In assessing the consequences of Iran's nuclearization, it is important to consider not only how Iran is likely to act but also how other states will react to this outcome -- and what the United States could do to influence their responses. Iran's nuclearization would not reduce Washington to passively observing events in the region. Washington would retain considerable ability to shape what Iran's neighbors do and do not do.
The nightmare scenario that could be unleashed by Iran's nuclearization is easy to sketch. Israel would go on a hair-trigger alert -- ready to launch a nuclear weapon at a moment's notice -- putting both countries minutes away from annihilation. Egypt, Saudi Arabia, and Turkey would scramble to join the nuclear club. The Nonproliferation Treaty (NPT) would collapse, unleashing a wave of nuclear proliferation around the globe.
Such a doomsday scenario could pan out. Whether it did would depend greatly on how the United States and others, starting with Israel, responded to Iran's nuclearization. Whether Israeli Prime Minister Benjamin Netanyahu forgoes a preventive strike against Iran's nuclear facilities or opts for launching an attack and it fails, the Israeli government will continue to regard the Iranian regime as an existential threat to Israel that must be countered by any means possible, including the use of nuclear weapons. Given Israel's unique history and Ahmadinejad's contemptible denials of the Holocaust, no Israeli prime minister can afford to think otherwise.
The riskiness of a nuclear standoff between Israel and Iran would vary with the nature and size of Tehran's nuclear arsenal. An Iran with only the capability to build a nuclear weapon would pose a far less immediate threat to Israel than an Iran that possessed an actual weapon. Iran's possession of a bomb would create an inherently unstable situation, in which both parties would have an incentive to strike first: Iran, to avoid losing its arsenal, and Israel, to keep Tehran from using it. The Israeli government's calculations about Iran would depend on its assessment of the United States' willingness and ability to deter Iran. Israel's decision-making would be shaped by a number of factors: the United States' long-standing support for Israel, Israel's doubts about U.S. leadership after Washington's failure to stop Iran from going nuclear, and Washington's response to Iran's nuclearization.
Another danger that would have to be countered would be nuclear proliferation in the Middle East. Iran's regional rivals might try to catch up with it. History suggests, however, that states go nuclear for reasons beyond tit for tat; many hold back even when their enemies get nuclear weapons. China's pursuit of the bomb in the 1960s prompted fears that Japan would follow, but nearly half a century later, Japan remains nonnuclear. Although Israel has more than 200 nuclear weapons, neither its neighbors -- not even Egypt, which fought and lost four wars with Israel -- nor regional powers, such as Saudi Arabia or Turkey, have followed its lead.
An Iranian nuclear bomb could change these calculations. The U.S. National Intelligence Council concluded in a 2008 report that "Iran's growing nuclear capabilities are already partly responsible for the surge of interest in nuclear energy in the Middle East." And nuclear energy programs can serve as the foundation for drives for nuclear weapons. But it would not be easy for countries in the region to get nuclear weapons. Many lack the infrastructure to develop their own weapons and the missiles needed to deliver them. Egypt and Turkey might blanch at the expense of building a nuclear arsenal. The Pakistanis were willing to "eat grass" for the privilege of joining the nuclear club, as the Pakistani leader Zulfikar Ali Bhutto once famously put it, but not everyone is.
Cost considerations aside, it would take years for nuclear aspirants to develop indigenous nuclear capabilities. They would need to build nuclear reactors, acquire nuclear fuel, master enrichment or reprocessing technologies, and build weapons and the means to deliver them. While they tried, the United States and other states would have ample opportunity to increase the costs of proliferation. Indeed, the economic and security interests of Egypt, Saudi Arabia, and Turkey, unlike those of Iran, are tied to the United States and the broader global economy, and developing nuclear weapons would put those interests at risk. Egypt would jeopardize the $1.5 billion in economic and military aid that it receives from Washington each year; Saudi Arabia, its implicit U.S. security guarantee; and Turkey, its place in NATO. Given their extensive investments in and business ties to the United States and Europe, all three countries would be far more vulnerable than Iran is to any economic sanctions that U.S. law imposed, or could impose, on nuclear proliferators.
States seeking nuclear weapons might try to sidestep these technological and political hurdles by buying, rather than making, the weapons. Saudi Arabia's clandestine acquisition of medium-range ballistic missiles from China in the 1980s suggests that even countries that depend on U.S. security guarantees might be tempted to buy their way into the nuclear club. Although neither the five acknowledged nuclear powers nor India would be likely to sell nuclear weapons to another state, Pakistan and North Korea could be another matter. Both countries have a history of abetting proliferation, and Pakistan has warm ties with its fellow Muslim-majority countries. But selling complete nuclear weapons would come at great political cost. Pakistan might forfeit U.S. foreign assistance and drive the United States into closer cooperation with India, Pakistan's mortal enemy. North Korea would endanger the economic aid it gets from China, which the regime needs to stay in power.
If a buyer did manage to find a seller, it would have to avoid a preventive strike by Israel -- which would be likely if the sale became known before the weapon was activated -- and then handle the inevitable international political and economic fallout. (In 1988, Saudi Arabia avoided a major rift with Washington over its missile deal with China only by finally agreeing to sign and abide by the NPT.) Furthermore, any country that bought a nuclear weapon would have to worry about whether it would actually work; in global politics, as in everyday life, swindles are possible. Obtaining a nuclear weapon could thus put a country in the worst of all worlds: owning a worthless weapon that is a magnet for an attack.
If Iran's neighbors decided against trying to get nuclear weapons, they could pursue the opposite approach and try to appease Tehran. The temptation would be greatest for small Persian Gulf states, such as Bahrain and Kuwait, which sit uncomfortably close to Iran and have large Shiite populations. Such a tilt toward Iran would damage U.S. interests in the region. The U.S. Fifth Fleet is based in Bahrain, and U.S. military bases in Bahrain, Kuwait, and the United Arab Emirates are crucial to projecting U.S. power and reassuring U.S. allies in the region. But as long as these governments believe that Washington is committed to their security, appeasement will be unappealing. Pursuing that strategy would mean casting aside U.S. help and betting on the mercy of Tehran. In the absence of a U.S. security guarantee, however, Iran would be free to conduct in those countries the very subversive activities that their governments' appeasement was intended to prevent.
Although Iran's nuclearization would probably not spell the end of efforts to halt proliferation in other parts of the world, it would undeniably deal the nonproliferation regime a setback, by demonstrating that the great powers are unable or unwilling to act collectively to stop proliferators. On the other hand, most states adhere to the NPT because they have compelling national reasons to do so. They may not feel threatened by a nuclear power; they may be covered by the nuclear umbrella of another state; they may lack the financial or technological wherewithal to build a bomb. Iran's success in developing a nuclear weapon would not change these calculations. Nor would it prevent Washington from pushing ahead with its efforts to strengthen the Proliferation Security Initiative (a U.S.-led multinational effort launched by the Bush administration that seeks to stop trafficking in weapons of mass destruction), impose a cutoff on the further production of fissile material, tighten global rules on trade in nuclear materials, and otherwise make it more difficult for nuclear technologies to spread.
Iran's acquisition of a nuclear bomb could have disastrous consequences in the Middle East. But Washington would have considerable opportunities to influence, and constrain, how Iran's neighbors reacted to its new status. It would matter whether Washington reassured Israel or fueled its fears. It would matter whether Washington confronted regional proliferation efforts or turned a blind eye, as it did with Pakistan in the 1980s. It would matter whether Washington pushed ahead with efforts to strengthen the NPT regime or threw in the towel. To keep the nightmare scenario at bay, the United States will need to think carefully about how to maximize its leverage in the region.
I SAY NO, NO, NO
Tehran is an adversary that speaks in ideological terms, wants to become a dominant regional power, and is capable of acting recklessly. But it is also an adversary that recognizes its limitations, wants to preserve its hold on power, and operates among wary neighbors. Its acquiring a nuclear bomb, or the capacity to make a nuclear bomb, need not remake the Middle East -- at least not if the United States acts confidently and wisely to exploit Iran's weaknesses.
Any strategy to contain Iran must begin with the recognition that this effort will have to be different from that to contain the Soviet Union. Iran poses a different threat. During the early years of the Cold War, U.S. policymakers tried to protect like-minded countries against a Soviet invasion that would have imposed communist rule, or against widespread economic dislocation, which could have produced a communist takeover from within. Their strategy was to turn to the NATO alliance and launch the Marshall Plan. The United States' containment strategy toward Iran must reflect different realities today. Iran does not seek to invade its neighbors, and its ideological appeal does not rest on promises of economic justice. It seeks to establish itself as the dominant power in the region while preserving political control at home.
Deterrence would by necessity be the cornerstone of a U.S. strategy to contain a nuclear Iran. Success is by no means guaranteed. Deterrence can fail: it nearly did during the Cuban missile crisis, in 1962, and at several other critical junctures of the Cold War. Iran's revisionist aims and paranoia about U.S. power may appear to make the country uniquely difficult to deter. But that conclusion conveniently -- and mistakenly -- recasts the history of U.S. confrontations with emerging nuclear powers in a gentler light than is deserved. At the start of the Cold War, U.S. officials hardly saw the Soviet Union as a status quo power. In the 1960s, China looked like the ultimate rogue regime: it had intervened in Korea and gone to war with India, and it repressed its own people. Mao boasted that although nuclear war might kill half the world's population, it would also mean that "imperialism would be razed to the ground and the whole world would become socialist."
Today, the challenge for U.S. policymakers devising a deterrence strategy toward Iran will be to unambiguously identify what behavior they seek to deter -- and what they are willing to do about it. When Washington publicly presents its policy on how to contain a nuclear Iran, it should be explicit: no initiation of conventional warfare against other countries; no use or transfer of nuclear weapons, materials, or technologies; and no stepped-up support for terrorist or subversive activities. It should also make clear that the price of Iran's violating these three prohibitions could be U.S. military retaliation by any and all means necessary, up to and including nuclear weapons.
The pledge to deter a conventional attack would be the easiest of the three prohibitions to enforce. Iran's ability to project sustained military power outside its borders is limited. And it is unlikely to grow substantially anytime soon: even more arms embargoes would likely be imposed on Iran if it crossed the nuclear threshold. At their current level, U.S. troops in the region are more than sufficient to deter Iran from undertaking incursions into Iraq or amphibious operations across the Persian Gulf -- or to stop them if they occurred.
Deterring Iran from using or threatening to use nuclear weapons would present a different set of challenges. So long as Iran lacks the ability to strike the United States with a nuclear-tipped missile, the United States can credibly threaten to retaliate militarily if Iran uses or threatens to use a nuclear bomb against anyone. But that could change if Iran developed long-range missiles. Tehran might also try to deter the United States by threatening to attack Europe, which would raise well-known concerns about the viability of so-called extended deterrence, the ability of one state to deter an attack on another. These possibilities highlight the importance of developing robust, multilayered ballistic missile defenses. The Obama administration's decision to reorient U.S. missile defenses in Europe to protect against shorter-range missiles while continuing to develop defenses against longer-range missiles is just the right approach.
A tougher challenge would be to ensure stable deterrence between Iran and Israel. With regard to this issue, too, the Iranian nuclear program's ultimate degree of development would be pivotal: an Iran armed with nuclear weapons would present a significantly more dangerous threat than one that merely had the capacity to build them. It is thus essential that Washington continue to apply diplomatic and economic pressure to keep Tehran, should it manage to complete the nuclear fuel cycle, from taking the final step. The United States should also publicly pledge to retaliate by any means it chooses if Iran uses nuclear weapons against Israel; this would in effect supplement whatever second-strike capability Israel has. If the Israelis need a formal commitment to be more reassured, this pledge could be made in an executive agreement or a treaty. As a tangible expression of its commitment, Washington should also be prepared to deploy U.S. troops on Israeli soil as a tripwire, which would show that the United States would be inextricably bound to Israel in the event of any Iranian attack.
Washington should also inform Tehran that it would strike preemptively, with whatever means it deemed necessary, if Iran ever placed its nuclear forces on alert. And it should bring both Israel and Israel's Arab neighbors fully under its missile defense umbrella. The more aggressive Iran is, the more inclined its neighbors will be to work with Washington to construct missile defenses on their territories.
Deterring Iran from transferring nuclear weapons, materials, and technologies to state and nonstate actors would require another set of measures. For the most part, Iran has reasons not to pursue such perilous activities, but it could be tempted to exploit the difficulty of tracking the clandestine trade in nuclear materials. The United States and its allies would need to act decisively to prevent Tehran from seeking to profit in the international nuclear bazaar, for example, through the Proliferation Security Initiative and through UN resolutions that imposed additional sanctions on Iran and its potential business partners. To impress on Iran's ruling mullahs that it is singularly important for them to control whatever nuclear arsenal they may develop or obtain, Washington should hold Tehran responsible for any nuclear transfer, whether authorized or not; Tehran cannot be allowed to escape punishment or retaliation by pleading loss of control. Increased investments in monitoring and spying on Iran would be critical. The United States must improve its ability to track nuclear weapons, materials, and debris and prove and publicize whether they came from Iran (or any other country, for that matter). Such nuclear forensics is crucial to determining who is responsible for nuclear transfers and would be crucial to building support for any U.S. retaliation against Iran, if it were the culprit.
Deterring Iranian support for terrorist and subversive groups -- the third redline prohibition that the United States should impose -- would be difficult. Such activities take place secretly, making it hard to establish precisely who is complicit. That complication places a premium on improving the ability of the U.S. intelligence community, acting alone and in concert with its counterparts abroad, to track Iran's clandestine activities.