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Nautilus Institute
By Peter Hayes and Scott Bruce
September 22, 2011
This report was adapted from “Unprecedented Nuclear Strikes: Translating North Korea’s Nuclear Threats into Constrained Operational Reality,” in Gregory Moore, ed, North Korean Nuclear Operationality: Implications for Regional Security and the Nuclear Non-Proliferation Regime (forthcoming, Stanford University Press).
Nautilus invites your contributions to this forum, including any responses to this report.
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CONTENTS
I. Introduction
II. Report by Peter Hayes and Scott Bruce
III. References
IV. Nautilus invites your responses
I. Introduction
Peter Hayes, Professor, RMIT University and Executive Director of the Nautilus Institute and Scott Bruce, Director of the Nautilus Institute, San Francisco assess that North Korea's options for a nuclear strike are severely constrained—so much so that the only credible use of the DPRK’s nuclear arsenal is to detonate a bomb within North Korea itself to slow down or to stop an invasion in the context of an all-out war with the United States and South Korea. They conclude that, "At this stage, North Korea’s outrageous nuclear threats against targets outside its borders are not backed up by actual capabilities. Countering the North’s rhetorical threat with more nuclear extended deterrence raises tensions instead of addressing the underlying problem of nuclear insecurity. Ultimately, the only way forward is to re-engage the North, and identify pathways that create confidence and reduce the mutual perception of the threat of massive destruction, whether by conventional or nuclear weapons."
The views expressed in this report are those of the author and do not necessarily reflect the official policy or position of the Nautilus Institute. Readers should note that Nautilus seeks a diversity of views and opinions on significant topics in order to identify common ground.
II. Report by Peter Hayes and Scott Bruce
- “Unprecedented Nuclear Strikes of the Invincible Army: A Realistic Assessment of North Korea’s Operational Nuclear Capability”
By Peter Hayes and Scott Bruce
North Korea’s KCNA news often threatens to launch “unprecedented nuclear strikes.” In reality, the North Korean nuclear program has limited offensive capability.
[1] Just how limited is a matter of dispute between well informed observers and analysts. South Korea’s Defense Minister Kim Kwan-jin, for example noted recently that it was “possible” that North Korea had miniaturized a nuclear warhead as there had been, in his opinion, “enough time for them to have succeeded in miniaturization.”
[2] He based his statement on how long it took other states to miniaturize a nuclear warhead, not on an assessment of North Korea’s actual nuclear capability. Thus, in the absence of data, North Korea is attributed with capacities that it may—or may not—have. Additionally, even if North Korea has miniaturized a nuclear warhead from a big, heavy and crude nuclear explosive device, the DPRK lacks an effective delivery mechanism and therefore has a limited ability to offensively use nuclear weapons.
We assess that the North is capable of operationally using nuclear weapons, but its options for a nuclear strike are severely constrained. We conclude that the only credible use of the DPRK’s nuclear arsenal is to detonate a bomb within North Korea itself to slow down or to stop an invasion in the context of an all-out war.
[3] Aside from this nuclear-use scenario, conventional weapons predominate in realistic evaluations of deterrence and war-fighting in the Korean Peninsula.
North Korean Declaratory Nuclear Posture
The stated purpose of the North Korean nuclear program has changed over the last decade.
[4] North Korean statements that once described the nuclear program as a tool to secure the state against outside aggression, now describe it as a stabilizing force in the region.
During and after the collapse of the Agreed Framework in 2002, KCNA statements described the nuclear program as a substitute for a security guarantee from the United States. If North Korea’s security concerns were addressed, they argued, there would be no need for the nuclear program. An October 2002 statement is particularly telling:
“The settlement of all problems with the DPRK, a small country, should be based on removing any threat to its sovereignty and right to existence. There may be negotiations or the use of deterrent force to be consistent with this basis, but the DPRK wants the former, as far as possible.”
By 2005 this language had changed. North Korea declared itself to be in possession of nuclear weapons and began to depict its nuclear program as a regional stabilizer which prevented war by countering the US nuclear threat to the region.
[6] KCNA statements even suggested that North Korea’s nuclear program benefitted South Korea by raising a nuclear umbrella over the entire Korean Peninsula!
[7]
By 2010 North Korea had not only openly threatened to use it nuclear weapons for the first time,
[8] but made the first real declaratory statement of its nuclear posture in response to the US nuclear posture review:
“The mission of the nuclear forces of the DPRK is to deter and repel aggression and attack against the country and the nation until the denuclearization of the Korean peninsula and the world is realized. The DPRK is invariably maintaining the policy not to use nuclear weapons against non-nuclear states or threaten them with nuclear weapons as long as they do not join the act of invading or attacking us in conspiracy with nuclear weapons states.”
[9]
Although these statements should be taken very seriously, particularly by South Korea and Japan who are implicated in both via their alliance with the United States, we should not assume that North Korea has the operational military capability to back up this declaratory posture and the stated nuclear threats.
North Korean Technical Nuclear Capacity
When it comes to nuclear threats against the United States, South Korea, and Japan, North Korea vastly overstates its ability to strike. North Korea is estimated to have enough fissile material to produce between five and ten nuclear weapons, depending on the size of the bombs, and the state’s efficiency in creating and reprocessing plutonium, and the amount used in its two tests to date.
[10] This means that the use of a single nuclear weapon would exhaust 10-20 percent of the DPRK’s nuclear arsenal. At this time, the DPRK has not resumed operations of the Yongbyon nuclear facility and is not producing additional plutonium. North Korea’s uranium enrichment program, revealed late last year, could be used to enrich uranium for a bomb, but is currently producing low enriched uranium to fuel its under-construction pilot light water reactor—assuming that its declared intention to complete and operate such a reactor is implemented as announced.
[11] The limited supply of fissile material means that North must deploy its nuclear weapons in a highly strategic manner and only for the most valuable, most certain returns.
Delivery by Air
North Korea lacks a credible delivery option for its nuclear weapons. North Korean attempts to launch satellites on booster rockets in 1998, 2006, and 2009 used much the same technology needed to launch long-range missiles. All three tests failed.
[12] It takes the United States scores of tests to ensure that a new missile design works, and may be deployed with sufficient confidence that it is operationally effective.
[13]North Korea needs many more tests of all the systems, independently and together, at a much higher rate than one every few years, to be confident that its missiles would not fail on the ground or in the boost phase, let alone even approach a target with sufficient accuracy to destroy it.
[14] In short, the North Korea’s long range missile program is not a credible threat to the United States or anyone else for that matter, and is unlikely to be one for some time.
Short and medium-range missiles have been tested but are not accurate enough to effectively target enemy forces in a combat scenario. The DPRK’s medium-range No-dong missiles cannot be counted on to hit a set target.
[15] Similarly the DPRK’s short range SCUD missiles are highly inaccurate, particularly the mobile SCUD C models with an unreliable guidance system.
[16] The SCUD B missiles have only a 50 percent chance of landing within 1 km of their intended target, making them unsuitable for attacking military units.
[17]The unreliability of North Korea’s missile systems, the limited amount of fissile material, the lack of testing of the components of an integrated nuclear warhead and missile system, and the severity of any response to nuclear next-use by North Korea means that a DPRK leader is highly unlikely to rely on missiles to deliver a nuclear attack with a combined very small probability of success.
North Korea has only a few bombers capable of delivering a large, crude nuclear weapon to a target. The only nuclear-capable bombers in North Korea’s arsenal are the Ilyushin Il- 28 “Beagle” and the Chinese H-5 variants.
[18] The Beagle was retired by the Soviets in the 1980s, but still is in active use in North Korea. Although the Beagle is technically capable of delivering a nuclear weapon, it is hard to imagine a North Korean bomber not being shot down before it reached its intended target. In a war, a North Korea bomber flying toward the DMZ would be targeted and shot down rapidly by ROK anti-aircraft weapons. Even a bolt-out-of-the-blue surprise attack is not a credible scenario due to the Il-28’s slow speed and low maximum altitude.
[19] North Korea is highly unlikely to risk its limited stock of fissile material by putting it in a plane with almost no chance of actually delivering the bomb to the target.