South Asian Studies
A Research Journal of South Asian Studies
Vol. 29, No.1, January – July 2014, pp. 41-60
Nuclearization of South Asia 1998: Pakistan’s Domestic
Constraints
Mubeen Adnan
University of Punjab, Lahore.
Abstract
India and Pakistan are two countries that, having tussles since the day they emerged on the
globe as independent countries in 1947. The dispute between the two countries has a
number of constraints in terms of historical, political and strategic terms. However, the most
important amongst them is Kashmir, over which a number of wars have been fought. In
May 1998, the relations between India and Pakistan took a new turn when India conducted
its nuclear tests on 11 and 13 May 1998, followed by Pakistan conducting its own series of
nuclear tests on 28 and 30 May 1998. Thus began a complicated nuclear race between the
two that concerned the international community at large because any conflict between the
two having a nuclear angle would have global ramifications. This research is focused on the
domestic constraints of Pakistan related to the nuclear issue of 1998 and provides a better
perspective, from a Pakistani viewpoint. The acquisition of nuclear weapons by India and
Pakistan did not lead to instability in the region, both have adopted a policy of deterrence,
the leadership of both sides is thinking rationally and stable relations in the form of
deadlock are current. Both in India and Pakistan there exists a common belief that their
nuclear programs are the guarantors of national security and national power. Due to these
explosions, nuclear weapons have been put to political use by both countries. And both
states are now targets for the nuclear missiles of all the other nuclear weapon states, as well
as each other.
Key Words:
Nuclear weapons, explosions, constraints, India, Pakistan.
Introduction
Nuclear weapons, importance is linked to political value. “Nuclear weapons are not
instruments for fighting wars and their military value actually derives from the political
effects of the existence of nuclear arsenals, including their ability to define and shape
political stability between rival nations and blocs and signify power in relations between
states”(Chellaney, 1991: p.312) For political reasons, nuclear weapons enable “mutual
kill.”(Broodie, 1946: p.23) Nuclear weapons development is also considered as the
advancement of defense capabilities and a stronger military. Explosions show that
nationalism is an important force behind the nuclearization of India and Pakistan. Pakistan
emerged as a nuclear leader of the Muslim world and the whole nation is together on the
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South Asian Studies 29 (1)
nuclear issue. According to Rodney Jones, nuclear weapons for Pakistan, “would strengthen
the unity of the country and in that sense, its security.” (Jones,1997: p.212). Nuclear
weapons are considered an important component of power and India as a large state, wanted
to have power projection capabilities for political purposes in the region and beyond.
(Subrahmanyam, 1981: p.12). Nuclear weapons might give a sense of strength and power to
the military and political leaders of Pakistan. On the Indian side scientific developments
have been shaped by nationalism and the whole nation feels proud.
Nuclear explosions and missile programs on the Indian and Pakistani side are the result
of nationalism in the form of technological advancement and there exists a national
consensus on both sides to deter their enemy and a show of power. Nuclear developments
of India and Pakistan have not resolved border tensions and the disputes over Kashmir.
Another point of view is that nuclearization is basically a political problem, leaders use
nuclear policy as an instrument of self-defense and a deterrent against her enemy. The Long
standing India- Pakistan rivalry pushed them both to go for the nuclear option.
Nuclear Explosions by India and Pakistan 1998
South Asia became overtly nuclearized on 11th and 13th May 1998, when India exploded
nuclear devices. India justified its nuclear explosions by claiming it did this in order to
contain China, which was providing co-operation to Pakistan in developing nuclear and
missile programmes and also to stop China’s naval activity in the Indian Ocean. India
surely did not need nuclear weapons against a decisively weakened Pakistan. As far as
China is concerned, it has neither showed any aggressive posture within the region, nor at
the global level. It has been following a non-alignment policy. Thus Indian nuclear
capability has had a hegemonic nature. For Pakistan the un- successful western military
alliances made it vulnerable before India and the acquisition of nuclear power gave it selfreliance and confidence.
A serious attempt is required in order to understand the dynamics of the nuclear
politics as a constraint in South Asia. Pakistan emerges as the main villain to the Indian
strategic community. The Indian nuclear programme was portrayed as civilian in nature
before the May 1998 explosions but the Pakistani programme was militaristic from day one.
(Nizamani, 2001: p.55) After the May 1998 nuclear tests, the Indian leadership showed an
exemplary pragmatism in handling protracted insurgency in Kashmir. India considered
itself a superior force in comparison to Pakistan. In the face of this threat, Pakistan took a
political decision to conduct its own nuclear tests, ignoring all pressure from the world. The
decision of the government has had popular domestic support which helped the leadership
to face domestic constraints related to the nuclear explosions.
The political investment of the voices of the dominant security discourses in India and
Pakistan in the nuclear issue makes it immensely difficult for any government to abandon
the nuclear option. Zafar Iqbal Cheema, Pakistani defense expert, explains that “the chances
of denuclearization of South Asia are slim because of the level of nuclear weapons
capabilities both countries have acquired” (Cheema,1996: p.103). In 1998 the nuclearization
of South Asia marked by nuclear tests by India and Pakistan ended the ambiguity that both
42
Nuclearization of South
Mubeen Adnan
have nuclear weapons. These tests dramatized the need to work on nuclear risk reduction
techniques. The impact of nuclearization on conventional tussles/wars has been ambiguous.
The interplay of nuclear and conventional threats is a new dimension of Pakistan-India
relations.
The overt demonstration of nuclear weapons in the subcontinent increased
international attention to the region and especially on the Kashmir issue. Pakistani and
Indian officials argue that the nuclear deterrence had minimized the option of full-scale war
in this region. However there exists the possibility of misperception and technological error
can lead towards the dangers of accidental nuclear war. The significance of access to real
time information for nuclear weapons has increased. Any lapse in this regard would have
serious consequences for the people and infrastructure of both the states.
Indian Nuclear Policy
India introduced the nuclear arms race in the region for supporting her hegemonic desire.
The Tata institute was established in 1945 and Dr. Homi Bhaba was nominated its
Chairman.
“India's first Nuclear test occurred on 18 May 1974.
Since then India has conducted another series of tests at
the Pokhran test range in the state of Rajistan in 1998.
India has an extensive civil and military nuclear
program, which includes at least 10 nuclear reactors,
uranium mining and milling sites, heavy water
production facilities, a uranium enrichment plant, fuel
fabrication facilities, and extensive nuclear research
capabilities. In 2005, it was estimated that India had
between 40 and 50 warheads.” (Khan, 1998: pp.5-6)
Between 1974 and May 1998, the internal dynamics of Indian nuclear policy were
influenced by different factors. The Weak Indian political leadership was reluctant to
develop a policy that saw a connection between Indian independence and indigenous
capabilities in the field of conventional and nuclear arsenals. Indians declared the Non
Proliferation Treaty (NPT) discriminatory and divide the world into haves and have not’s.
On the other side is the Comprehensive Test Ban Treaty (CTBT) which created technical
discrimination.
The Chinese factor was also important for developing Indian nuclear policy. The IndiaChina border war of 1962 and China’s nuclear tests of 1964 and China’s friendly relations
with Pakistan and Chinese military assistance to Pakistan silently put pressure on India.
“Dismissing Pakistan’s India centric security concern, India rationalized its nuclear- centric
security concerns” (Haider, 2002: p.83). India justified its nuclear explosions by explaining
it did this in order to contain China, which is providing co-operation to Pakistan in
developing nuclear and missile programmes and also to stop China’s naval activity in the
Indian Ocean.
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South Asian Studies 29 (1)
In March 1998 the BJP government came into power. Under this government no
dialogue process between India and Pakistan was started and the Indian government was
not ready to show any compromise on Kashmir and the BJP government has had an
ambition to conduct nuclear tests.
Nuclear Doctrine
India has drafted a nuclear doctrine which was announced on 17 August 1999 by its
National Security Advisory Board created by the BJP government. The Doctrine announces
its joining of the nuclear club of five states and the main features were stock-piling of
nuclear weapons, intercontinental reach of weapons and to play a role in this world as an
emerging geo-economic power.
“India has a declared nuclear no first use policy and is in
the process of developing a nuclear doctrine based on
"credible minimum deterrence." In August 1999, the
Indian government released a draft of the doctrine which
asserts that nuclear weapons are solely for deterrence
and that India will pursue a policy of "retaliation only".
The document also maintains that India "will not be the
first to initiate a nuclear first strike, but will respond
with punitive retaliation should deterrence fail" and that
decisions to authorize the use of nuclear weapons would
be made by the Prime Minister or his 'designated
successor(s).”
(http://www.indianembassy.org/policy/CTBT/nuclear_d
octrine_aug_17_1999.html)
There were five principles laid down in this doctrine, these are sufficiency,
survivability and co-operational preparedness of nuclear forces, a development of a nuclear
triad of land, air and sea. To have the capability to absorb and then retaliate enemy’s
nuclear strike with a force which would create unacceptable damage to enemy. Second
strike capability should be acquired for deterring China. The doctrine also emphasizes the
need for credible nuclear deterrence. Comprehensive training and planning for the
employment and deployment was the important feature of this doctrine. It maintains strict
control over the export of sensitive technologies and materials. It would continue further
nuclear testing. India was adopting the no first use policy in 2001-2002 during the border
stand off. India's strategic nuclear command was formally established in 2003, with an Air
Force officer, Air Marshal Asthana, as the Commander-in-Chief. The joint service SNC is
the custodian of all of India's nuclear weapons, missiles and assets. The Indian Cabinet
Committee on Security reviewed the operationalization of India’s nuclear doctrine of 4
January 2003 and drafted a new version of the nuclear doctrine, in which it omits the
development of a triad of strategic nuclear forces (land-based, air based) which was beyond
India’s capacity. The no first use policy was modified as the word “anywhere” has been
added e.g.; nuclear weapons will only be used in retaliation against a nuclear attack on
Indian territory or on Indian forces anywhere. This showed the aggressive posture of India.
44
Mubeen Adnan
Nuclearization of South
Article six of the doctrine renders the no-first use declaration in valid by saying that in a
major attack against India or Indian forces any where, by using biological or chemical
weapons, India will not hesitate to answer the attack by using nuclear weapons.
The Indian nuclear tests were carried out for getting recognition of India as a major
power in South Asia and to catch up to China, in terms of status and deterrence. India also
wanted to show its technological and strategic superiority over Pakistan. The political
analysts believed that these tests were done in order to boost the BJP government’s internal
weak position. These tests were used to divert the attention from their domestic problems.
But India was not totally successful in getting advantages from its nuclear explosions of
1998, and it did not secure great respect among international community. It gave the chance
to Pakistan to match India as a declared nuclear power. Nuclear power was used to revive
bilateral diplomacy between India and Pakistan. For India, the role of the military increased
in nuclear policy making and as a result the defense budget also increased. India also lost its
standing as an advocate of nuclear disarmament.
Pakistan’s Nuclear Programme
Nuclear weapons are an integral part of the strategic discourse of Pakistan. Z.A Bhutto was
considered the pioneer of the nuclear issue in Pakistan. He was convinced that the major
threat to Pakistan’s security comes from India.
The Indian factor has been the rallying point of the dominant security discourse in
Pakistan and Pakistan deemed it a national duty to respond to Indian’s nuclear explosions.
The decision to go to nuclear “earned Prime Minister Nawaz Sharif a place of honor in
Pakistan’s history.”(Arif, Dawn, 25 November1998). Pakistan acquired nuclear weapons
for political as well as for military purposes. The motives behind this are to deter its
enemy’s conventional superiority as well as acquiring international fame.
Nuclear Policy
The disaster of 1971 war was the one driving force for formulating the nuclear weapon
programme when the Pakistani conventional forces did not match the Indian superiority for
defending its territory.
Pakistan has many reasons to adopt a cautious attitude in relation to its nuclear
activities, it is almost certain that it would resist any formulation that singles it out and
ignores or disregards the activities of other countries in the region. The Indian nuclear
development threatened Pakistan as all the leaders made it an issue of concern. Pakistan
assumed that the main target of Indian nuclear weapon is Pakistan. It can be used against
Pakistan. In order to deter India, Pakistan’s nuclear programme development is essential in
this regard.
Prime Minister Bhutto wanted a nuclear weapon for balancing India’s conventional
superiority, to counter its nuclear threat as well as to revive Pakistan’s reputation. The
leadership thought that nuclear weapons were necessary in order to deter India. Prime
Minister Z.A Bhutto stated that “if India builds the bomb, we will eat grass or leaves, even
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South Asian Studies 29 (1)
go hungry, but we will get one of our own, we have no alternatives.”(Aslam,1989: p.10). It
is said that Prime Minister Bhutto encouraged nuclear development in order to strengthen
his own image with the Pakistani public and to have a shield against Indian nuclear
progress. Pakistan worked for a credible nuclear deterrence against India. In 1985, President
Muhammad Zia- ul- Haq clearly announced that Pakistan’s nuclear development was to
counter the Indian threat.Prime Minister Bhutto, saw a nuclear bomb as a way of balancing
India’s conventional superiority and an answer to its nuclear threat. He was deeply
interested in making Pakistan Nuclear. In front of India, Pakistan was an isolated and
threatened state and the nuclear bomb was considered very important.
Pakistan policy makers initially adopted a wait and see attitude to have time to access
the world community’s response to the Indian tests. At the same time, Pakistan was
working for retaliation tests. But foreign pressure for not conducting a nuclear test was
increasing day by day. At a domestic level, public opinion, political parties and defense
establishment put pressure on the government to go for nuclear explosions. 70% of
Pakistanis wanted their government to explode a nuclear device. Prime Minister Nawaz
Sharif in his interview to the Times said that “I don’t think I will last in office more than 2
or 3 days if I don’t make a test.” (Daily Times, May 26, 1998)
After exploding nuclear tests Prime Minister Nawaz Sharif said that “we have settled
the score with India by detonating five nuclear devices of our own.”(Hussain, 1998: p. 23)
He announced that Pakistan did this for its security concerns. It is required for the peace and
stability in South Asia. Having exploded its nuclear devices Pakistan is now in a position to
bargain with India when it comes to the negotiating table in order to settle their differences
through talks. By virtue of Pakistan’s nuclear capability, it has gained confidence and is
ready to expedite efforts for the solution of the Kashmir problem. India constantly accused
Pakistan of supporting insurgency in Kashmir.
The most important similarity between the Indian and Pakistani nuclear hawks is their
reliance on “political realism as a result of these intellectuals, preoccupation with the
problem- solving goals of theorizing. This trait, in turn, makes existing accounts of nuclear
politics prone to presenting their subjective analyses as objectively true depictions of
strategic reality” (Nizamani, 2001 : p.138) The Pakistani Political party Jamait- i- Islami
and Bharatiya Janta party in India were the supporters of the nuclear option and played
important roles in influencing the nuclear discourse.
In the case of Pakistan’s security issue, India is always portrayed as the key threat. It is
in this context that Prime Minister Z. A Bhutto included the nuclear option to his policy as a
deterrent against India. Over the nature and direction of nuclear discourse and some others,
there is a near monopoly by a selected number of people that are politicians and it
comprises a small number of scholars, military and civil servants both in India and Pakistan.
It is evident that how the political parties abide by the rules. The researchers explained that
a selected number of individuals have linked the nuclear issue with some other internal and
external issues. The animosity between the two countries has increased; both countries will
increase their nuclear capability in the future. CBM’s have had not produced the desired
results of resolving the different issues between them. Domestic politics and stereotyped
leadership of both states have had an influence on foreign policy.
46
Mubeen Adnan
Nuclearization of South
Pakistani officials believe that nuclear weapons have ruled out the possibility of a
conventional war between them but the kargil episode showed something different to it. A
year later after India and Pakistan became nuclear powers, kargil conflict erupted between
them. “By traditional deterrence theory, nuclear weapons are primarily political
weapons.”(Nizamani, 2001: pp.147-148) The Nuclear programmes of both countries are the
extensions of the political aims rather than having pure military objectives. Both states have
a viewpoint that they do not want to become the target of one another and indulging them
into unnecessary crises. India and Pakistan do try to influence each other. The so called
nuclear arms race is underway between India and Pakistan.
Stephen P. Cohen explains that
“India and Pakistan, driven by racial and religious
hatred, are locked into a deadly arms race that could (at
worst) lead to regional and or global nuclear war, or (at
best produce a nuclear accident, nuclear theft, or the
transfer of fissile material and sensitive technology to
other near nuclears….The perception is widespread that
regional governments are often unstable and can not be
trusted with nuclear weapons. On the other hand there is
a minority view that nuclear weapons themselves
generate their own logic that of deterrence…. India and
Pakistan will replicate and evolve on a small scale the
peaceful deadlock.”(Cohen, 1991: pp.10-11)
Nizamani in his book the Roots of Rhetoric discussed nuclearization of India and
Pakistan as a result of “love-hate relationship between nuclear hawks.”(Nizamani, 2001:
p.148). There is no guarantee between the two that nuclear war will not break out. Nuclear
Proliferation has stopped conflicts to a level that no new or worse crisis has erupted. But
“India can not make peace, Pakistan can not make war.”(Cohen, 1991 : p.15).
Disequilibrium/Imbalances between India and Pakistan
South Asia is the poorest and most militarized region in the world. India and Pakistan are
responsible for the arms race. India is ranked at 94th (2009) in terms of per capita income
and
emerged
as
fourth
largest
economy
globally.
(http://www.articles.economicstimes.indiatimes.com….,economicsurvay) . On the other
side, Pakistan’s ranking is very low in terms of per capita income and in terms of its
economy.
As compared to Pakistan, India has a four times larger territory, is seven times more
populous, is two times more powerful in conventional force, it has four times more
extensive and advanced technological proficiency and has strategic depth from a defense
perspective. On the other side Pakistan’s location on the Arabian Sea, geographic linkage
with China, Iran, Afghanistan and proximity to Central Asia and Russia stands as strong
evidence of its natural strategic importance. Due to its geographical position, Pakistan has
the potential to play a significant role within the region. It has sizeable armed forces.
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South Asian Studies 29 (1)
Table 1.1 Defense Expenditure as % of GDP
Year
India
Pakistan
1998
2.8
5.2
1999
3.1
5
2000
3.1
4
2001
3
4
2002
2.9
4.2
2003
2.8
4.2
2004
2.8
4.1
2005
2.7
4
2006
2.5
3.8
2007
2.3
3.6
2008
2.5
3.4
2009
2.6
3.2
2010
2.4
3.2
Source: data. world bank.org/indicators/MS.MIL.XPND.GD.ZS
This table shows that in the comparison of India and Pakistan, Pakistan is spending more on its defense as
percentage of its GDP. (Reddy, South Asian Journal Jan- March, 2004, Issue III)
Pakistan being a small country in comparison to India and spending greater money on
defense ultimately put pressure on economy, education and welfare programmes. The
political elite justify it by saying that they have to do this in order to deter India. This table
shows huge difference of spending’s on health, education and defense.
Table 1.2 DEFENCE VS EDUCATION AND HEALTH (% of GDP)
Defence Spending
Country
Public & Private
Public & Private
Spending on Health
Spending on
Education
India
4.2(2009)
3.09(2006)
2.6(2009)
Pakistan
2.6(2009)
2.7(2009)
3.2(2009)
Source: World Development Indicators Database (World Bank, 2009)
Insecurity by Nuclear Weapons
Nuclear weapons lead to many types of insecurity. The great danger comes from the
possibility of a nuclear explosion, by mistake or by choice. “If a small nuclear weapon with
the same yield 15 kiloton’s as the one that was dropped on Hiroshima more than 50 years
ago was exploded over Mumbai or Karachi, the number of immediate deaths could be as
high as half a million.”(Ramana, Report, 1999: p.10). The deaths due to radiation effects
and cancers would be more than the above estimate. Pakistan and India must come to terms
with Robert Jay Lifton’s statement: “the central existential fact of the nuclear age is
vulnerability”(Lifton & Falk, 1982: p.55). Nuclear weapons also pose non nuclear/
conventional threats. It is seen that violence and militarism in Kashmir intensified almost
around the period when Pakistan started claiming and announcing its nuclear capability in
the late 1980’s or early 1990’s. The terrorist’s acts in the Kashmir valley after the nuclear
48
Nuclearization of South
Mubeen Adnan
explosions have not changed the situation in Kashmir. The risk has been increased that a
small battle could be escalated into a nuclear war crisis.(Ravana, 2003: p.166) As for
Pakistan and India, an economically stable state with strong institutions and without nuclear
bombs would be more secure than an economically shattered state with few nuclear arsenals
but having a population without basic necessities. The Soviet Union is an example of a state
that collapsed due to bad economy but still having nuclear weapons.
Nuclear weapons have increased militarized behaviour of India as well as Pakistan.
Nuclearization has made both states less stable as the Indian- Pakistani disputes have
increased. Both state’s relationships became more conflictual. There were two major
militarized confrontations in the wake of the 1998 nuclear tests, the Kargil conflict and
Indian Pakistani militarized stand off that nearly led to war in 2002. Crises have followed
crises. Despite the defeat in the Kargil war, Pakistan political and military leaders stressed
that Pakistan’s nuclear weapons had deterred India from crossing the Line of Control or the
international border. Military has had this strong belief who otherwise acknowledged that
nuclear weapons are of no other than military utility.
Domestic Constraints vis a vis Nuclear Explosions 1998
The relations with India have created domestic constraints for Pakistan for example
security, lack of trust, geography, politics and indeed post independence history of bad
relations. Pakistan had weighed all these constraints before exercising its choice. There is a
fundamental link between constraints and nuclear weapons in South Asia. The Pakistani
response to the 1998 nuclear crisis emanating from Indian nuclear tests resulted in
multifaceted repercussions. Domestic constraints conditioned the foreign policy of Pakistan
towards India.
Politically Pakistan faced domestic pressure and Prime Minister Nawaz Sharif found
himself under the scrutiny of the political parties. Economic constraints had seriously
undermined Pakistan’s ability to meet its international debt obligations and continue its
international trade activities. The situation took a serious turn when the foreign exchange
accounts of all Pakistanis with local banks were frozen, to deal with the economic
constraints. Pakistan having a weak economy still has to spend large amounts on defense.
Following are the constraints which Pakistan had faced regarding the nuclear explosions in
1998.
Domestic
Constraints in
1998 Nuclear
Explosions
History
Geography
Security
Economy
Political
Table 1.3 Domestic Constraints in 1998 Nuclear Explosions
Limitation on
Limitation on
limitation on
Capacity to act
Foreign Policy
Foreign Policy
Decisions
Choices
India could attack.
Economic sanctions.
World power
pressure. To absorb
sanctions. To absorb
world pressure.
To stop India from
attack on Pakistan or to
over- rule its
superiority.
Relations might
suffer.
Whether to
go for
nuclear or not to
go for nuclear.
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South Asian Studies 29 (1)
Generated by the Researcher
a. Historical Factor
The Indian National Congress never accepted the two nation theory. India adopted the
policy of secularism. The history of bad relations between India and Pakistan shows that
military power is used to achieve political objectives. The troubled relationship has been,
based on confrontation and crisis ever since the Independence of India and Pakistan. The
animosity between them is rooted in their history and the tradition of mutual distrust and
suspicion which is inherited by both. (Ahmed, 2009: p.55).The core problem between them
is Kashmir, which has continued the relations of mutual distrust and tension.
A historical analysis of Pakistan-India relations provides the evidence that
relationships are based on traditional issues, stereotyped mentality, non variable images and
wrong perceptions given by political leaders.(Kumar, 2004: p.33) The conflict between
India and Pakistan originated as a clash between Indian nationalism and Muslim
nationalism before the partition of the sub-continent. Quaid-e- Azam Muhammad Ali
Jinnah insisted on a separate country for the Muslims namely Pakistan. On the other hand
India became the secular Hindu- majority and the world’s largest democratic state. Kashmir
has been the main flash point ever since partition and most Pakistani and Indian conflicts
have ended in stalemate. The two neighbours are divided into two by a line of control and
Pakistan-India relations are rooted in the geographic, political, cultural and economic links
as well as various military conflicts and territorial disputes between them.
For over 700 years, Muslims ruled the subcontinent and eventually succeeded in
establishing Pakistan as their separate homeland. Unfortunately, the Indians did not accept
the partition of their great India; they took it as their defeat. In the Hindu national
consciousness, as inspired by many great Hindu writers of the last century, the subcontinent
is conceived as a unity, one and indivisible from the Khyber Hills to the far south, with the
North-West, which is Pakistan, its heart and soul.”(Bhutto, 1960: p.13). This thinking has a
powerful influence over the Indian mind. The Indian leaders took Pakistan as a price for the
transference of power from British to Indian hands. They had to concede to this division
when it became clear to them that partition was inevitable.
b. Security
The post cold war time period has heightened Pakistan’s concerns regarding its security
deficit. During the cold war, Pakistan entered into partnerships with major powers for
achieving its foreign policy aims and afforded incentives for adopting a moderate course,
but also served as constraints on worst-case threats from India. Security perceptions of
Pakistan are directly linked with the real and perceived threats confronting it from time to
time. After independence Pakistan was feeling insecure against India and in turn it joined
herself with the West and especially with America. The Indian factor virtually had a binding
effect on Pakistan’s security perceptions at that time. Pakistan joined SEATO (South East
Asia Treaty Organization) in 1954 and CENTO (Central Treaty Organization) in 1955 for
enhancing its security. (Rehman,1999: pp.10-12). The Pakistani leadership says that Indian
actions always threatened its neighbouring countries and it’s for exercising hegemony in
50
Mubeen Adnan
Nuclearization of South
South Asia. There also exists a lack of trust between India and Pakistan which further
support the security concerns of Pakistan.
Pakistan faces security compulsions because of the Indian behaviour, which enjoys
numerical superiority in conventional weapon a variety of missiles and a large weapon
oriented nuclear programme. The threat that Pakistan perceives from India is not a product
of its imagination but it’s a reality. After the Indian as well as Pakistani nuclear tests, the
security environment had changed. Pakistan had acquired nuclear capability not by desire
but only for security or deterrent reasons against the hegemonic India. Pakistani leadership
started consultations over the nuclear tests of India. (Rizvi, Indian News, 16 May, 1998).A
Press statement was released after the meeting of the Defense Committee of the Cabinet
(DCC), which was headed by Prime Minister Nawaz Sharif, It Stated that “Pakistan’s
warning to the international community, particularly to the major powers, to stop India from
crossing the threshold had gone unheeded. Government is determined to reject any
unilateral, selective and discriminatory pressure from any quarter on matters pertaining to
national security.”(The Nation, 22 May, 1998). Different Indian leaders in their speeches
regarding the nuclear environment threatened Pakistan and demanded to roll back its antiIndia policies. The hostile statements raised the temperature and intense clashes between
India and Pakistan on the Line of Control (LOC) started. Pakistan’s chief of army staff
(COAS), General Jahangir Karamat, visited forward positions in Kashmir on May 23 and
May 25, 1998, respectively. The Army Chief ensured that “any Indian military activity
along the line of Control would trigger a response from Pakistan and that no sacrifice was
great to ensure a balance critically” (Burk, 1975: p.44).These developments had a great
impact on the decision makers and the Inter- Services Intelligence (ISI) Chief, Lt. General
Naseem Rana on May 27, 1998, briefed the Prime Minister, the COAS on the overall
security situation. The briefing highlighted intelligence reports of a possible Indian attack
on Pakistan’s nuclear installations. One report was regarding the sighting of an unidentified
F-16 aircraft at the periphery of Pakistan’s airspace on May, 1998. India had no F-16
aircraft and it was assumed that it was Israeli aircraft. The second report showed an unusual
movement of aircraft in India just across the border, hinting that India might launch a
preventive air strike against Pakistan’s nuclear installations. (Chander, 2003: p.7). This
information further increased tension in relations. Mr Shamshad Ahmad Khan, who was
Pakistan’s Foreign Secretary at the time of nuclear explosions of 1998, said that, we had
credible information of an imminent (Indian) attack on our nuclear and sensitive
installations. We immediately warned India that such an attack would be a breach of the
1988 bilateral agreement on no strike against each other’s nuclear and sensitive
installations. We warned them of a swift and massive retaliation. We also alerted the
international community and major powers of the consequences of any such Indo-Israeli
misadventure against Pakistan. The destabilizing effect of Indian Prithvi missile on the
security of Pakistan can be judged that with its short flight time, Pakistan’s reaction time to
this is less than three minutes; this missile is quick to fire.
India wanted to impose a threat to end Pakistan’s existence and this security threat
would materialize by an outright conventional military invasion, due to frustration over the
resistance in Kashmir or as an outcome of smaller encroachments. Indian policies are
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South Asian Studies 29 (1)
always considered as a continuous source of threat for Pakistan. The table1.4 shows that
Pakistan as a developing state spending more on its defence as a percentage of its GDP as
compare to India, Russia and the developed states China and US.
Table 1.4 Defence Expenditure as % of GDP
China
2
India
2.4
U.S.
4.8
Russia
4
Pakistan
3.2
Turkey
2.4
Israel
6.5
10.4
S. Arabia
Source: World Bank Indicators(World Bank data base 2010)
data. world bank.org/indicators/MS.MIL.XPND.GD.ZS
Year
Table 1.5 Military expenditure of Pakistan
In Local Currency (b. rupees)
1989
1990
1991
1992
1993
1994
1995
Value
1988
47.3
51
58.6
70.2
81.6
89.6
98.1
112
124
Year
1997
1998
1999
2000
2001
2002
2003
2004
2005
154
170
188
207
232
263
Value
132
140
147
Year
2006
2007
2008
Value
287
309
336
1996
As percentage of gross domestic product.
Year
1988
1989
1990
1991
1992
1993
1994
1995
1996
Value
6.2
6
5.8
5.8
6.1
5.7
5.3
5.3
5.1
Year
1997
1998
1999
2000
2001
2002
2003
2004
2005
Value
4.9
4.8
3.8
3.7
3.8
3.9
3.7
3.6
3.5
Year
2006
2007
Value
3.3
3.1
Source: - http://milexdata.sipri.org/result.php4
c. Geography
Pakistan’s geo-political location made its relations with India more important. Pakistan’s
geographical linkage to India and its internal topography also explains its sense of
vulnerability to a potential Indian conventional invasion. India’s sheer size has always been
a source of fear, and a feeling of insecurity exists in the minds of policy makers. Its
southern flanks lie exposed to India on a diagonal axis of roughly 2,000 kilometers from the
Arabian Sea in South-West Sindh to upper Punjab and Kashmir in the North East. The
terrain along most of this border is flat and vulnerable to rapid armor movement. The large
size of Indian territory is linked to more natural resources. Pakistan shares half of its land
borders with India and its major cities are within easy reach of the Indian army. Pakistan
52
Mubeen Adnan
Nuclearization of South
lacks strategic geographical depth, which is vital for a sustainable defense effort. Pakistan’s
urban centers with large populations are concentrated along the territorial river belt, which
is more than 300 kilometers wide in the North and narrow at points to less than 100
kilometers as it moves south, such as where southern Punjab ends and Sindh begins.
Similarly, Lahore, the provincial capital and the largest city of Punjab, is within the range of
front lines of Indian heavy artillery near Amritsar. Perhaps, all of Pakistan is susceptible to
air attack by the Indian supersonic aircraft. (Kux, see also Singer,1998: p.161-164).
For Pakistani military planners, the logical avenues of Indian military advance are
obviously those which were exploited in the 1965 war. Indian military leadership focused
on the same opportunities during the Brass tacks exercise of 1986-87. Thus in a war like
situation, if Pakistan’s ground forces fail, Pakistani Punjab could be easily overturn by
Indian armor, opposite Sialkot and Lahore, opening the door to occupation of the heart of
the country. Punjab is expected to be the main invasion corridor because of its proximity to
Kashmir and its status as Pakistan’s political heartland. With diversionary attacks towards
Lahore in central Punjab, India could concentrate armed forces further south in Rajistan for
its main invasion across the desert by striking at Pakistan’s vital north-south road and rail
communication link, where they narrow to a waist hardly 70 kilometers across, southwest
of Rahim Yar Khan. This plan could cut off Punjab and the North West Frontier Province
(NWFP), where most of Pakistan’s air and ground military assets are based, from Karachi,
which is Pakistan’s main naval base and a major port, handling the supply of oil and other
imports upcountry and exports. Such an invasion could be supplemented by Indian
sponsored subversion through dissident groups to threaten the breakup of Pakistan from
territorial perspective. India could also block Karachi port from the sea.
d. Economy
The political influence of a nation has been more or less correlative to its military strength
which comes out from its economic strength. Economic power helps the state in becoming a
military power because military power is directly related to its economic capabilities. The
economy as a whole was threatened by a low growth rate, high balance of payment deficit,
decline in investor confidence, and decline in foreign direct aid, growing unemployment
and poverty. The country suffered from chronic fiscal deficits because of a highly
developed black market economy. By mid 1998, Pakistan’s foreign debt stood at US $ 30
billion, foreign currency reserves were less than US $ 1 billion, GDP growth rate had fallen
to
3
%
and
inflation
had
risen
to
12%.i
(http://www.globalsecurity.org/wmd/library/news/pakistab/1998/980529-gop-pak-nuclear1..).These economic constraints had rendered the Nawaz Sharif Government weak. There
are no reliable estimates of Pakistan’s cost on nuclear weapons. Ram Monohar Reddy, an
economist and journalist estimated $ 10-12 billion. The table below shows the Investment
costs of nuclear weaponization.
53
South Asian Studies 29 (1)
Table 1.6 Investment Costs of Nuclear Weaponization
1- One reactor to produce plutonium
7,000 million rupees
2- One missile production facility
5,000 “
3-Cost of a 150 bomb arsenal
6,000 “
4- Cost of Missiles
40,450 “
5- Cost of fitting nuclear weapon on air force squadron
600 “
6-Cost of 3 nuclear submarines
120,000 “
7-Cost of C4 I
35,250 “
8-Cost of satellite
20,000 “
9- Cost of radar and protection of air base and launch sites
50,000 “
Total
280,000 “
Source: C. Ram Manohar Reddy, The Hindu, 2 September 1998.
Nothing is known about how much Pakistan spends, or has spent on its nuclear
weapons. Kahuta has never announced its estimated expenditures. The financial cost of
Pakistan’s nuclear weapon programme is kept secret and even estimating the cost is
difficult. But the above mentioned table gives an estimation cost for nuclear weapons. This
shows how tough it is for a weak economy to have nuclear weapons.
Table 1.7 Composition of Key Macroeconomic Magnitudes in the Pre, Post-Blasts/Sanctions Scenario 1998-99
Difference
Pre- Blast Scenario
Post-Blast
Sanctions
Scenario
GDP Growth Rate
6%
3%
-3%
Rate of Inflation
6%
5%
-1%
Budget Deficit?
6%
6%
0
Current Account Deficit? As % of GDP
3½%
6%
2½%
Sourse: ‘Impact of Economic Adjustment on Social Development in Pakistan’ Retrieved On 12 April 2010
from Http://Www.Spdc.Org.Pk/Pubs/Rr/Rr28.Pdf
The numbers in the Table highlight the differences between the performance of macro
indicators in the pre and post blast/sanctions situation in the first year. It is apparent from
the performance of macro indicators that the acquisition of nuclear capability and the
resulting sanctions inflicted substantial costs on the economy in the short run. All the
indicators, except inflation and budget deficit in post-sanction era, are lower or worse than
in the counter-factual pre-blast/sanctions position. Tight fiscal policy specifically
expenditure curtailment artificially closed the budgetary gap. Predictions of lower inflation
in the post-sanctions reflect onslaught of deep recessionary conditions in the economy.
The decision to carry out tests was certainly a difficult preposition for the government
of Pakistan. The decision entailed the prospect of comprehensive sanctions Imposed on
Pakistan. It was felt that a nearly bankrupt Pakistani economy might not be able to
withstand these sanctions. Gohar Ayub the foreign Minister said that “we are quite
accustomed to sanctions and embargoes. Sanctions will be savior and Pakistan will choose
its time for nuclear tests.”(The News, 28 May, 1998.).Economic constraint had serious
concerns for Pakistan but the political leadership, public and defense establishment were
ready to bear the burden. The Finance Minister, Sartaj Aziz made a statement that “plan
underway to face sanctions, economic package no substitute for security.”(The News, 27
54
Mubeen Adnan
Nuclearization of South
May 1998). Earlier in a meeting of the Defense Committee of the Cabinet on 15 May 1998,
he was the only person who opposed the tests on financial grounds, due to the economic
recession, low foreign exchange reserves of Pakistan and the effect of economic sanctions
which would be imposed.
Enforcement of economic sanctions had created stress and the decision makers took
the controversial decision to cease foreign currency accounts (FCA’s) held by Pakistani
banks. This decision had long term economic constraints for Pakistan. This decision played
havoc with the business of the foreign companies working in Pakistan. As a result its
economic rating decreases more . In 1998, as a response to the continuing tests, the United
States and Japan imposed temporary economic sanctions on India.
Prime Minister Nawaz Sharif informed the cabinet that “Pakistan had no choice, in
case of emergency Pakistan will utilize its economic resources within the state.”(The News,
30 May 1998.). Fears that sanctions might sink Pakistan’s shaky economy were not
misplaced. At the time of the nuclear tests, Pakistan had a foreign debt of over US $ 30
billion and foreign exchange reserves of only US $ 600 million. Pakistan would require
fresh financial help from International Monetary Fund (IMF) in-order to meet the debt
service payments.
f. Political
Prime Minister Nawaz Sharif was facing difficulties on the domestic political front, around
the time of nuclear explosions of Pakistan. In the February 1997 elections, Mr. Nawaz
Sharif’s party, Pakistan Muslim League (PML) won a tremendous victory over other
parties. To obtain absolute power, Prime Minister Nawaz Sharif began to remove
constitutional hurdles. The Prime Minister had disputes with Chief Justice of Pakistan, Mr.
Justice Sajjad Ali Shah, with the President of Pakistan, Mr. Farooq Ahmad Khan and with
the Chief of Army Staff General Jahangir Karamat led to the resignation or the replacement
of all these three. The removal of all these three had made Mr. Nawaz Sharif the most
powerful Prime Minister in the history of Pakistan. In spite of his power, the Prime Minister
was unable to restore civil order in Pakistan. Internal strife increased, in Karachi, Mohajir
Qaumi Movement (MQM), Shia Sunni sectarian violence especially in Punjab and
elsewhere in the country. The government was involved with the Taliban government in
Afghanistan, as Pakistan, UAE and Saudi Arabia had recognized Taliban. The Taliban
openly supported a sectarian group in Pakistan. In NWFP, there was ever increasing
Taliban influence.(The News, 30 May 1998.). Mr. Nawaz Sharif’s ability to govern
Pakistan properly was in doubt. He was also under international pressure not to respond to
Indian nuclear tests. All the governments in Pakistan declared that they would match any
Indian tests, failure to do so would undermine Mr. Nawaz Sharif’ already damaged
credibility. It shows that Mr. Nawaz Sharif had personal political stakes attached to nuclear
testing. The Government was under immense pressure from the political circles as well as
from the scientists’ community to test the country’s capabilities in response to the Indian
tests.
55
South Asian Studies 29 (1)
The Pakistani government tried hard to explore all possible alternatives for responding
to the Indian tests. This was a unique situation for Pakistan when the political force,
military force and public were in favour of conducting nuclear tests. The head of the state,
Rafiq Tarar, the head of the government, Mian Nawaz Sharif, the Military Chief, Jahangir
Karamat, and the Cabinet Ministers for Finance, Sartaj Aziz, Foreign Minister Gohar Ayub
and Interior Minister, Ch. Shujaat all were in favour of explosions.
Prime Minister Nawaz Sharif consulted various parties and factions and remained
under enormous pressure to conduct the tests. Former Prime Minister Benazir Bhutto
favoured an immediate nuclear test and stated that India should be disarmed by a
preemptive attack. Ms. Bhutto also demanded a resignation by Mr. Nawaz Sharif. (Dawn,
18 May 1998).Elite support was also there for explosions, to prove this, nation- wide
celebrations are enough to see the support of all domestic community.
Despite having all the above mentioned constraints, there were some domestic
influences which favoured the nuclear explosion and compelled Pakistan to go for nuclear.
Here only public opinion would be discussed because it was thought that it was a constraint
to nuclear explosions but according to surveys and different interviews of scholars, it was
the supporting element for nuclearization.
Public Opinion not a Constraint
States declare that there has been public support for having nuclear weapons. Public support
for them is built by creating a sense of crisis and fear. They are told that there is an enemy
and the bomb is the only shield that would protect them. Generally the Pakistani public
knows little about the nuclear issue. Media, newspapers, magazines also showed that
nuclear weapons are vital. (Mian, 2003: pp.78-79).Nuclear tests took place in the political
environment of Pakistan. Having created public opinion in favour of nuclear weapons,
leaders claimed that they had no other choice. The Pakistani Public also asked for the
removal of poverty, health and electricity and education problems etc but leaders did not
pay much attention towards that. A survey conducted by Gallup Pakistan an institute of
Public opinion affiliated with Gallup International in May 1998 stated that seventy percent
people are in favour of nuclear tests, thirty percent advise restraint, fifty one percent called
for immediate detonation of nuclear bomb while thirty percent said it should wait till
economic
recovery.
(http://www.globalsecurity.org/wmd/library/news/pakistan/1998/980528-app.htm)
Multiple surveys and opinion polls show that there is a general public support for the
existence and maintenance of Pakistan’s nuclear weapons. The fact remains that Pakistan’s
literacy rate is too low for the general public to fully comprehend the pros and cons of
possessing and maintaining nuclear weapons and deterrent capability. Even most politicians
hardly understand what a nuclear weapon is and what it can and cannot do. The NGOs in
Pakistan are mostly confined to the economic and political fields primarily concerned with
poverty alleviation, democratic rights, the health sector and dealing with natural
catastrophes. Anti-nuclear lobbies are also working in Pakistan which includes university
professors, retired army generals, social workers and journalists. Prominent activists among
them are Dr. Anayat Ullah, Zia Mian, A. H Nayyer and Dr. Pervaiz Hoodbouy. They have
56
Mubeen Adnan
Nuclearization of South
produced a number of publications and organize processions in which they create awareness
among the masses about the dangers posed by nuclear weapons. Despite these efforts, the
fact remains that Pakistan’s literacy rate is too low for the general public to fully understand
the pros and cons of possessing and maintaining nuclear weapons and deterrent capability.
Even most political leaders hardly understand what a nuclear weapon is and what it can and
cannot do. The NGOs in Pakistan are mostly confined to the economic and political fields
primarily concerned with poverty alleviation, democratic rights, the health sector and
dealing with natural catastrophes. (Nizamani, June 14, 2003). There is a general public
consensus in Pakistan on the existence and maintenance of its nuclear weapons capability
that has been demonstrated through multiple surveys and opinion polls.
The potential for public opinion to act as a constraint on Pakistan’s nuclear explosions
and nuclear policy would be possible if the public could see environmental dangers
affiliated with nuclear weapons. Some Pakistani citizens have joined hands with their
Indian counter-parts to promote peace between India and Pakistan and oppose the arms
race. The association of Peoples in Asia called for “reduction in arms purchases and
stoppage of nuclear arms race in this continent.”(Ahmed and Cotright, 2001: p.103).The
India-Pakistan People’s Forum for peace and democracy has also urged talks to eliminate
the danger of nuclear conflict. A very small segment of Pakistan’s educated elite was
against the nuclearization and public initiatives were limited. It is not possible for people to
obtain information about nuclear weapons and government’s support for nuclearization
through television and print media dominates. As a result the prospects for educating and
arousing public opinion are bleak. All the Presidents, Prime Ministers and military leaders
of the country are manufacturing a national consensus in support of nuclear weapons and
they consider it vital to Pakistan’s national interest. India has been projected as an hostile
enemy of Pakistan. If an open and informed debate on nuclear weapons would be started
then the people of Pakistan would more freely assess the full implications of the nuclear
programme and would begin to search for an alternative policy for sustaining peace rather
than military confrontations.
Conclusion
It will be in the interests of Pakistan and India to work out some bilateral arrangements to
wipeout the environment of mutual suspicion and work for nuclear transparency.Nuclear
tests by both India and Pakistan brought world attention to the decades-old Kashmir
conflict. Since May 1998 nuclear tests, the relations have deteriorated. A different Crisis
emerged after the nuclear tests. The Kargil war, the military stand off and the threat of war
in spring of 2002 and terrorist attacks, all have increased the chances of nuclear threat of
war .The political and military leaders of both the states are ignoring this reality as Einstein
remarked that “the bomb has changed everything except our way of thinking.” (Hoodbhoy
& Mian, 2003: p.279). In the minds of leaders and military generals, nuclear weapons are
tools for achieving foreign policy aims. The public is uninformed and uneducated regarding
the cruelty of these weapons. Kargil war of 1999 was the first crisis which emerged due to
nuclear weapons. On 13 December 2001, Islamic militants attacked the Indian Parliament in
Delhi and India started its preparations to move out the militants camps in Pakistan
57
South Asian Studies 29 (1)
administered Kashmir. So the military stand-off on borders of both the states further
deteriorated the relations. Both states started giving nuclear threats to each other. Indian
military spending has been increased since the 1998 nuclear tests and Pakistan also want to
increase that but its economy is bad and cannot stand the constraint. The World Bank report
in 2002 stated that…. “in the 1990s the progress ground to a halt. Poverty remained stuck at
high levels, economic growth slowed, institutions functioned badly and a serious
macroeconomic crisis erupted.” (http://www.worldbank.org/pakistancas).
Mostly people of India and Pakistan lack basic information about nuclear danger. For
both states the absence of an informed and organized public opinion is not there which
would keep the leadership in check and constrain the making and the use of nuclear
weapons. When all is said and done it must be the duty of both India and Pakistan to avoid a
future armed conflict. The possession of nuclear weapons should be used to prevent war and
bring peace to the region. Kashmir is generally referred to as a nuclear flashpoint. After the
seventeen days crisis, the decision to carry out nuclear explosions was very important and it
is known as the “principal Trice Decision” in the history of Pakistan, In which the
President, the Prime Minister, Army Chief and the Defense Cabinet Committee was
involved in this decision. It was regarded a courageous attempt by the political leadership,
nuclear establishment and military to opt for nuclear explosions. The Leadership thought
that they have brought Pakistan into the front line in the particular aspect of nuclear
technology which is a mater of national pride. However, the nuclearization of South Asia
has brought along its own set of compulsions and requirements.
There are dangerous elements in the India-Pakistan nuclear equation. In case of a
nuclear confrontation, there is less than five minutes early warning time for India and
Pakistan, especially for Pakistan. One cannot exclusively rule out the likelihood that any
one of the crises between India and Pakistan would not escalate into a nuclear war. There
are many potentially destabilizing elements in the mechanics of nuclear deterrence. The
possibility of war can be averted in a short term through a range of arms control, security
and confidence building measures by dissipating the intensity of the conflict pending the
ultimate settlement of contentious issues such as the Kashmir dispute. Through negotiations
and confidence building measures both can promote peaceful environment in South Asia.
Thus, the logic to Pakistan’s response in May 1998 was provided by the Indian
initiatives. Nuclear tests have made Pakistan sure of the type of weapons that it develops.
This is a stabilizing factor between India and Pakistan. Moreover the stability of relations
would depend on the efforts to find a permanent solution of the Kashmir issue. For some
time period Kashmir had become an international agenda for its solution. Pakistan has
based its nuclear strategy on the first use of nuclear weapons in order to balance Indian
conventional superiority over Pakistan. Pakistan lacks strategic depth to retaliate with a
second strike capability. Economic conditions of Pakistan also did not allow it to have large
stockpile of nuclear weapons. Indian nuclear explosions were taken as a security threat to
Pakistan and Pakistan was not ready to accept the terror in the region. Pakistan’s response
was a combination of a unique type when all political parties, interest groups, public
opinion, civil society, military and scientists were in favour of explosions. Hence a decision
to go for nuclear was made. Possession of nuclear weapons, provides military and political
58
Mubeen Adnan
Nuclearization of South
strength, it puts pressure on both the adversaries India and Pakistan to solve their issues. A
bilateral dialogue process began between India and Pakistan, focusing on various issues
plaguing the relations between them. There were eight rounds of talks culminating into the
Lahore Declaration. However in 1999, these efforts were again sabotaged when India and
Pakistan the two nuclear powers were engaged in a Kargil crisis.In the long term,
democratic accountability, civilian control of nuclear weapons, removal of all domestic
constraints within Pakistan can only be enhanced by moving towards democracy and
building strong political institutions. Military control in all spheres should be eliminated for
true functioning of institutions.
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Biographical Note
Dr. Mubeen Adnan is Assistant Professor, Department of Political Science, University of the Punjab,
Lahore-Pakistan.
60