This report on non-binding, non-treaty approaches to arms control draws upon research and discussion at the Center for International Security and Arms Control during 1990 and 1991, after the Cold War had ended but before the disintegration of the Soviet Union. It was apparent at the time that the traditional approach to arms control--through detailed treaties resulting from long negotiations--might not be adequate to deal with the new situation in which arms reductions could be made quickly but coordination would still be needed in order to preserve stability. We examined the possibility of using reciprocal unilateral measures (RUMs) in place of treaties as a mechanism for achieving arms control.

A striking example of the approach we were recommending was when Presidents Bush and Gorbachev announced major withdrawals of non-strategic nuclear weapons in September and October 1991 (We describe the Bush-Gorbachev RUMs in this paper.) The strategic picture changed dramatically soon after those measures were announced. The Soviet Union was replaced by the Russian Federation and 14 other newly independent states. For several years, the treaty method worked well in U.S.-Russian arms control, alongside other forms of cooperation such as the Nunn-Lugar program. We put aside our work on RUMs.

Although we are far from a resumption of the Cold War, U.S.-Russian relations are no longer as cooperative as they were in the early 1990s. Besides, the treaty method has slowed almost to a standstill. We have therefore returned to the draft final report of 1991 and drawn from it the history we thought is relevant to the current problem of reducing the strategic nuclear threat Russia and the United States pose to each other--and to the rest of the world.

In July 1996, President Clinton established the Commission on Critical Infrastructure Protection (PCCIP), with a charter to designate critical infrastructures, to assess their vulnerabilities, to recommend a comprehensive national policy and implementation strategy for protecting those infrastructures from physical and cyber threats, and to propose statutory or regulatory actions to effect the recommended remedies. The charter gave examples of critical infrastructures (most notably telecommunications, electrical power, banking and finance, and transportation systems), and the types of cyber threats of concern (electronic, radio-frequency, or computer-based attacks on the information or communications components that control critical infrastructures).

Some of the infrastructures are owned or controlled by the government, and hence the government can harden and restructure these systems and control access to achieve a greater degree of robustness. However, the President's Executive Order recognized that many of the critical infrastructures are developed, owned, operated, or used by the private sector and that government and private sector cooperation will be required to define acceptable measures for the protection and assurance of continued operation of these infrastructures.

To assist in planning for the implementation of the Commission's recommendations, this paper starts by revisiting some of the Commission's central premises, and suggests that while there is reason to believe that the Commission's concerns over the long term are valid, more work is needed on these issues to fully support the PCCIP recommendations. Next, the Commission's recommendations are examined from the standpoint of priority, in order try to provide a clear focus for early implementation efforts. Of the 72 recommendations, ten are identified as important first steps. Due to the private ownership of most infrastructure systems, the Commission proposes new partnership relationships between the public and private sectors to accomplish the goal of protection.

This paper questions and extends the Commission's thinking regarding the implementation of such arrangements. It concludes that the sharing of information between the public and the private sector will have to be carefully designed to protect the interests of all the parties involved. It also notes that while the nature of infrastructure systems makes them global in their operation, the Commission's Report treats the problem almost exclusively from a domestic viewpoint. This will work against organizing the international partners who will, of necessity, be an important part of the solution.

The Bulletin of the Atomic Scientists has grown up along with world politics and has, since 1945, offered a special perspective on issues of peace, security, and global well-being. Now its unique blend of international commentary on the arms race, accessible articles on scientific dimensions of politics, and acute political journalism is presented here in a way particularly suited to students of international relations and security studies. Widely known for his creative work in international affairs education, George A. Lopez joins with the former managing editor of the Bulletin, Nancy J. Myers, to select recent articles best illustrating a wide range of issues on peace and security. The volume editors shape and supplement these articles specifically for classroom use. Each chapter includes several thematically linked articles supplemented with maps, data charts, photos, editorial cartoons, and discussion questions. Completing the package of pedagogical features for the volume is a master chart of key terms and concepts in international relations showing their connection to the articles. This new text-reader zeroes in on the core of any international relations course and brings the controversies alive with informed, international voices and new views on age-old questions about the arms race, peace, security, and the prospects for a post-nuclear world politics.

Features articles from the Bulletin of the Atomic Sientists, a unique teaching resource, selected and edited especially for students of international studies. Provides chapter introductions and thematic overviews by leading IR scholar and teacher linking these articles to core course content. Includes maps, figures, tables, high impact photos, and clever, specially-commissioned editorial cartoons. Presents discussion questions framed to show how text-reader content illuminates IR theory and current events. Offers a master chart of key IR terms and concepts as they appear within the reader. Incorporates a wide diversity of international authors, topics, and perspectives. Combines historical perspective with current events. Unlike other readers, Peace and Security is thematicaly unified and cohesive. prospects for a post-nuclear world politics.

Georgia--The Search for State Security

David Darchiashvili's working paper traces the attempts of the modern Georgian state to deal with issues of national security since independence. Darchiashvili outlines the nature of contemporary national security dilemmas for post-Soviet Georgia. The paper examines Georgia's present security threats, as well as its current relationships with Russia and the other countries of the region. The paper also presents an in-depth discussion of the situation of civil-military relations in Georgia and the impact of these relations on state security. The author analyzes the roots of Georgia's problems in developing a coherent and practical security policy. He proposes that the ad hoc character of current security policy has resulted in passivity in dealing with threats such as ethnic conflicts, including the war in Abkhazia. In his conclusion Darchiashvili makes a recommendation for the elaboration of a consistent national security concept for Georgia. The author proposes that this security concept will need to include a framework for relations between society and the military. According to Darchiashvili, in order to attain this goal Georgia needs to maintain internal stability and to secure support from international institutions.

European Security and Conflict Resolution in the Transcaucasus

Nerses Mkrttchian's working paper examines the issue of security in the Transcaucasus since the fragmentation of Europe's international landscape, and the emergence of a new cooperative European security system that followed the disappearance of the continent's political line of separation. Mkrttchian proceeds to analyze the security issues in the Transcaucasus region within broader European, Eurasian, and post-Soviet contexts. The paper examines the current security structure of Europe, its relationship to Russia and the Commonwealth of Independent States (CIS), and how these new security structures can affect the regional conflicts in the Transcaucasus. Mkrttchian analyzes the prospects for establishing regional cooperation on security issues in the Transcaucasus, and the role of international organizations in this process. The author points to the need for the development of "cross-dimensional" cooperation as a way to resolve conflicts in the region.

There is a growing logjam of arms control treaties waiting for approval in both the Russian State Duma and the U.S. Senate. Without decisive action, this logjam will probably prevent approval by the world's two largest military powers of the Strategic Arms Reduction Treaty (START II) of 1993, the Comprehensive Test Ban Treaty of 1996 (CTBT), amendments to the Anti-Ballistic Missile (ABM) Treaty, and the protocols of the Treaty of Pelindaba (creating an African nuclear-weapon-free zone (NWFZ)) and the Treaty of Rarotonga (creating a South Pacific NWFZ) before the end of the century. It will also prevent progress towards START III and further bilateral nuclear reductions.

The wars of the 1990s confirm a basic finding from the study of civil war termination: "peacemaking is a risky business." The greatest source of risk comes from spoilers - leaders and parties who believe that peace emerging from negotiations threatens their power, worldview, and interests, and use violence to undermine attempts to achieve it. When spoilers succeed, the results are catastrophic. But not all spoilers do succeed.

The crucial difference between the success and failure of spoilers is the role played by international actors as custodians of peace. This study begins to develop a typological theory of spoiler management, providing a first step toward understanding the spoiler problem in peace processes and evaluating the appropriateness and effectiveness of different strategies of spoiler mangement.

The July Workshop on Protecting and Assuring Critical National Infrastructure focused on three specific areas: international and legal issues relating to the control of network misuse and government roles for securing the infrastructure; economic factors, including market responses to the threat and to protection measures; and directions for future tools research in forensics, modeling, and simulation that will enhance understanding of system robustness, vulnerabilities, and security.

In addition to this agenda, the Workshop addressed the nature of public-private partnerships that could serve to coordinate the separate infrastructure protection efforts of each.

Whether China can achieve its economic and political goals depends very much upon whether PRC's domestic stability can be maintained and large-scale devastating military conflict, either internally with Taiwan or externally with major foreign powers, can be avoided. This article will speculate on China's security role in the region and in the world ten to fifteen years hence, and assess China's likely intentions, capabilities, and strategies in domestic and foreign affairs, in light of the changes in China's geopolitical environment.

Future regional conflicts will almost certainly involve politically less stable nations or other regional actors using theater ballistic missiles armed with either nuclear, biological, or chemical warheads. The United States Air Force is attempting to deal with this threat by developing the Airborne Laser (ABL) with the goal of shooting down missiles while they are still under power and before they can release submunitions possibly containing highly toxic biological agents. This paper presents the results of an analysis of this system. It is based solely on information found in the open literature and using the basic physics and engineering involved in transmitting intense laser beams through the atmosphere. The ABL's potential capabilities and possible theaters of operation are discussed at a non-technical level.

Since Brazil and West Germany surprised the world by announcing that they had reached the nuclear "deal of the century" in 1975, many national and international observers have feared that Brazil sought to develop atomic weapons. Brazilian rejection of the Nuclear Non-Proliferation and Tlatelolco treaties, insistence on its legal right to develop so-called peaceful nuclear explosives (PNEs), aspirations to great power status, authoritarian military government, and tacit nuclear rivalry with Argentina aroused concern that this ambitious program of reactor construction and technology transfer would mask an effort to reach the bomb.

Although difficult financial circumstances derailed this program in the late 1970s, by the early 1980s press reports began to emerge indicating that a secretive "parallel" nuclear program under military direction was underway. Transition to democratic rule in 1985 failed to clarify the nature and objectives of this second effort, and provocative statements by senior military officers intensified concerns. This second effort persevered in the face of the severe economic conditions that made the 1980s a "lost decade" for Latin American countries, increasing international stress on nonproliferation, and protests from domestic anti-nuclear and environmental groups, as well as a 1990 investigation by the national congress.

By 1991, however, Brazil had formally renounced PNEs, agreed to establish bilateral safeguards with Argentina and to accept International Atomic Energy Agency (IAEA) inspection of formerly secret nuclear facilities, and committed to ratifying the Treaty of Tlatelolco. This marked the apparent reversal of a long trajectory toward the proliferation threshold, and thus assuaged apprehension within and outside the country. Yet military involvement in nuclear technological development continued essentially unaltered, and Brazil now enjoys the distinction of being one of the few states with the indigenous capacity to produce fissile material necessary to construct atomic weapons.

This paper seeks to answer two questions: Given limited resources and domestic and foreign opposition, how did the Brazilian military succeed in developing this capacity? Given their determined effort and enduring role in nuclear development, why did the armed forces stop short of the bomb?

This study answers these two questions through investigation of domestic political processes, which involve the formation and maintenance of programmatic coalitions that marshal human, material, and political resources for technological development. Such coalitions encounter constraints which include competition for scarce human and financial capital, international technological denial, and domestic and international opposition. Such programs must be either effectively insulated from domestic challenges, or politically defended and normatively legitimated in spite of them.