Introduction

With the recent attention to new nuclear power, the challenge of managing the spread of nuclear technology has increased. At the same time, the growth of interest in nuclear power can serve as an important opportunity to improve the related safety, security, and nonproliferation regimes. One such opportunity arises in the context of the back-end of the nuclear fuel cycle, and the concern over how to mitigate the spread of enrichment and reprocessing, as well as how to store and ultimately dispose of spent nuclear fuel.

The first essay in this collection, "The Key Role of the Back-End in the Nuclear Fuel Cycle" by Charles McCombie and Thomas Isaacs, has been reprinted from the Winter 2010 issue of Daedalus on the global nuclear future. It focuses on the proliferation concerns that arise from enrichment and reprocessing as well as on the opportunities at the back-end of the fuel cycle for regional and international initiatives that may help to assuage energy, security, and waste concerns. Managing the emerging nuclear order will require the development of a clear set of goals, in which the issues surrounding the back-end of the fuel cycle must be included and satisfactorily addressed. This essay seeks to contribute to those efforts.

It is followed by four new papers whose authors were invited to reflect on this issue and to share their thoughts on this topic. These new papers reflect a diversity of sources and opinions, in keeping with both the global importance of these questions and the benefits of developing an international perspective on how they might be addressed. The authors focus on various aspects of the challenges raised by the back-end of the fuel cycle and offer possible options for addressing these challenges.

This volume also includes an edited version of remarks made by Ellen Tauscher, undersecretary of state for Arms Control and International Security, at a January 2010 conference at the Hoover Institution. Tauscher's remarks underscore the shared sense of the importance of addressing the back-end of the fuel cycle, in government as well as within academic and other non-governmental circles. This importance cannot be overstated when considering the growth of nuclear power. As Tariq Rauf observes in his essay, most of the spent fuel around the world is kept at the nuclear power plants that have generated it. All of the authors, however, support the idea of moving from the current status quo toward some form of multinational or international approach to dealing with spent fuel, including the possibility of the establishment of international spent fuel repositories. Although Rauf notes the likelihood of strong public opposition to international repositories (based on the traditional resistance even to national repositories), Frank von Hippel observes that communities in Finland and Sweden that host nuclear power plants have actually volunteered to host underground repositories, suggesting that it may be possible for public opposition--even toward international repositories--eventually to be overcome.

Two of the authors (Frank von Hippel and Atsuyuki Suzuki) suggest that the United States should be the first to serve as a host for an international repository and take spent fuel from other countries with small programs, as a way both to strengthen the nonproliferation regime and to increase nuclear safety and security worldwide. Suzuki asserts that such an approach, by the United States, would serve as an "epoch-making opportunity for the [Obama] administration to take the leadership" on this issue.

The essays in this collection engage with the challenge of the back-end of the fuel cycle in very different ways, whether through a cross-comparison of the programs of Japan, the Republic of Korea, and Russia, or through a focus on the history and current role of international organizations in this area. All, however, are linked by a recognition that the back-end of the fuel cycle has often been overlooked in discussions of the anticipated nuclear renaissance. They also share a general support, in principle, for international approaches to the backend of the fuel cycle, although, as Noramly Bin Muslim points out, such approaches "by no means constitute a ‘magic bullet' that can solve nonproliferation problems."

This publication thus stands as the continuation of the conversation begun both by the special issues of Daedalus on the Global Nuclear Future and by a meeting sponsored by the Academy in Abu Dhabi on nuclear power in the Middle East. With a growing desire for development, and a reliable energy supply, comes the need for a global expansion in nuclear power. A serious discussion of all aspects of this expansion is necessary if it is to be managed safely and securely.

We hope that the papers contained herein contribute to that discussion and help to build the basis for a more sustainable international nuclear order.

Leslie Berkowitz
CEO, American Academy of Arts and Sciences

Abstract
India's nuclear development has been accompanied by a dual track strategy of developing and building weapons while criticising the non-proliferation regime as discriminatory and simultaneously making public statements and proposals in favour of nuclear disarmament. But with international progress likely on aspects of nuclear disarmament over the next few months, India will be in the spotlight at the forthcoming 2010 Non-Proliferation Treaty (NPT) Review Conference to help move the disarmament and non-proliferation agenda forward. This article proposes that India meet this challenge by announcing specific commitments on permanently ending nuclear testing and plutonium production for weapons by a set date. In the course of reaching this conclusion, the article traces the history of India's role in the development of the international non-proliferation regime, its proposals on disarmament, and also its relationship with the United States with respect to India's nuclear development and ambitions.

In May 1998, India and Pakistan put to rest years of speculation as to whether they possessed nuclear technology and openly tested their weapons. Some believed nuclearization would stabilize South Asia; others prophesized disaster. Authors of two of the most comprehensive books on South Asia's new nuclear era, Šumit Ganguly and S. Paul Kapur, offer competing theories on the transformation of the region and what these patterns mean for the world's next proliferators.

Ganguly begins with an outcome-based approach emphasizing the results of militarized conflict. In his opinion, nuclear weapons have prevented Indo-Pakistani disputes from blossoming into full-scale war. Kapur counters with a process-based approach stressing the specific pathways that lead to conflict and escalation. From his perspective, nuclear weapons have fueled a violent cycle of Pakistani provocation and Indian response, giving rise to a number of crises that might easily have spun into chaos. Kapur thus believes nuclear weapons have been a destabilizing force in South Asia and could similarly affect other parts of the world.

With these two major interpretations, Ganguly and Kapur tackle all sides of an urgent issue that has profound regional and global consequences. Sure to spark discussion and debate, India, Pakistan, and the Bomb thoroughly maps the potential impact of nuclear proliferation.

Reviews

"Did the spread of nuclear weapons to India and Pakistan deter war or provoke aggression? Two prominent scholars of South Asian politics address this important question in a debate filled with insight and wit. Some readers will agree with Šumit Ganguly's optimistic assessment, and some will agree with S. Paul Kapur's more pessimistic appraisal. All will come away with a more nuanced understanding of the complex political effects of nuclear weapons."
- Scott D. Sagan, The Caroline S.G. Munro Professor of Political Science, Stanford University

"India, Pakistan, and the Bomb is remarkably well written. Šumit Ganguly and S. Paul Kapur discuss complex issues and contested history in a nuanced and lucid fashion."
- Arthur Rubinoff, University of Toronto

"Šumit Ganguly and S. Paul Kapur give us an unusually productive dialogue between deeply informed scholars who disagree about an issue of great theoretical interest and policy relevance. The stability of the South Asian nuclear balance is debated with such a fruitful combination of analytical rigor and empirical evidence that students of both the region and the general topic of proliferation will learn a great deal."
- Robert Jervis, Columbia University

"This is a great book for learning about the India-Pakistan conflict as well as nuclear deterrence theory. Šumit Ganguly and S. Paul Kapur, both first-class strategists, examine the effects of nuclear weapons on the rivalry between Islamabad and New Delhi and reach carefully reasoned yet opposing conclusions."
- John J. Mearsheimer, University of Chicago

"These eminent scholars of nuclear proliferation achieve a masterful blend of policy-relevant theory, empirical research, and rigorous analysis. In doing so, they drive the optimism/pessimism debate to a refreshing new level of subtlety and sophistication. Policymakers and professors alike will be delighted to have this compelling book at hand." - Devin T. Hagerty, University of Maryland