According to a report by United States Institute of Peace, over
the past decade, long-standing disputes between the nuclear-armed states of
Southern Asia have repeatedly veered into deeper hostility and violence.
These
regional developments reflect and reinforce new and significant geopolitical
shifts, starting with the global strategic competition between China and the
United States.
In Southern Asia, relations between the United States and
Pakistan have frayed even as United States-India and China-Pakistan ties have
strengthened. The region now faces deepening and more multifaceted
polarization. Global competition adds fuel to regional conflict and reduces
options for crisis mediation.
This
report reviews the challenges posed by changing strategic circumstances in
Southern Asia, assesses a range of US policy options, and presents a set of
priority recommendations for US policymakers.
China, India and Pakistan have developed nuclear
capabilities as one way to deter conflict with more powerful adversaries: the
United States, China, and India, respectively. Each of the states in Southern
Asia is expanding its nuclear arsenal and investing in related delivery systems.
All aspire to field nuclear triads with assured second-strike capabilities, but
China, India, and Pakistan are at very different stages in this process.
In making these investments in national security, each state
also threatens its less powerful rivals. The result, a ‘cascading security
dilemma’, encourages arms racing, disrupts regional strategic stability, and
heightens the risk that crises could cross the nuclear threshold.
In addition to general arms race dynamics, the introduction
of new munitions, more capable delivery systems, and potentially more
risk-acceptant doctrinal shifts tend, on balance, to exacerbate strategic
instability in Southern Asia.
Sophisticated missile defense systems; hypersonic and
multiple independently targetable reentry vehicle (MIRV) missiles; and
tactical, sea-based (surface and submarine), and dual-capable nuclear systems
all raise new challenges for crisis management and raise questions about how
they might influence the nuclear strategies and doctrines of regional states.
The
potential for conflict between India and Pakistan remains high following the
2019 Pulwama-Balakot crisis. Subsequent diplomacy led to the resumption
of a ceasefire along the Line of Control in 2021, but the underlying causes of
hostility, including although not limited to the disputed territory of Kashmir,
remain.
Moreover, India and Pakistan appear to have drawn lessons
from 2019 that increase the likelihood that future crises could escalate in
dangerous ways, possibly even to the nuclear threshold.
All
told, 2019 showed important shifts in long-standing positions (by India and
Pakistan, as well as China and the United States) and a new willingness by all
parties to accept greater risk.
Over
the past several years, India’s relations with China have also deteriorated
markedly. In the summer of 2020, their long-disputed land border saw the most
violent clashes in more than four decades. India and China have since pulled
forces away from hot conflict but have not found a way back to the pre-2020
status quo.
Both are actively investing in new military capabilities and
infrastructure along their inhospitable Himalayan frontier, raising the
prospect that future disputes could escalate into even more significant conventional
military exchanges.
Nuclear use remains unlikely, but it cannot be ruled out, if
only as the unintended consequence of conventional military escalation.
India-China border tensions are certain to influence their broader bilateral
relationship as well as military investments, both conventional and nuclear.
In
addition to worrisome trends in bilateral India-Pakistan and India-China
relations, India faces the thorny challenge of managing relations with two
hostile neighbors (China and Pakistan) that are increasingly close partners.
Other regional developments, including in Afghanistan, where
Taliban rule is likely to create new opportunities for terrorist groups,
further threaten strategic stability in Southern Asia.
Ultimately, it is the unpredictable evolution of these
dangerous dynamics in combination—India-Pakistan crises, China-India border
violence, and resurgent terrorist threats—that should raise concern that
inevitable flare-ups could spiral.
The
United States has only a limited capacity to influence the behavior of other
nuclear-armed states. The overlapping and interconnected rivalries and
territorial disputes in Southern Asia further complicate the policy challenge
facing Washington.
In particular, US policymakers will need to balance
competing strategic priorities as they deepen the strategic partnership with
India and deter aggression while taking care to avoid actions that could
contribute to a regional arms race, greater instability, or crisis escalation.
That said, the United States has in the past played a
significant role in regional crisis prevention and mitigation and continues to
have a wide range of policy tools at its disposal.
This
report systematically assesses a range of options for resolving, mitigating, or
better managing regional disputes; enhancing regional strategic stability
through deterrence, reassurance, and other diplomatic or technical means; and
improving crisis management tools and practices to reduce the likelihood that
any specific crisis escalates past the nuclear threshold.
This assessment is not intended to be a one-time effort. As
the United States faces new and evolving circumstances, it should continue to
develop policies to address the motives, new capabilities, and processes that
expose Southern Asia to a significant risk of nuclear war.
To resolve or mitigate core disputes in Southern Asia that
threaten regional peace, the United States should continue to pursue diplomatic
initiatives to encourage reduced tensions between India and Pakistan. It should
also prepare to seize opportunities for tactical progress, for instance, on
ways to remove forces from specific points of friction, such as the Siachen
Glacier, even if core disputes prove intractable.
The
United States should support long-term regional economic development projects
to build material incentives and more vocal constituencies favoring regional
peace.
Additionally, the United States should look for new
diplomatic opportunities to manage India and China’s border dispute, including
in US talks with China as well as coordination with US allies and partners to
develop new economic and financial tools aimed at deterring Chinese territorial
aggression.
The
United States should use its ongoing negotiations with the Taliban and economic
and financial leverage with Pakistan to reduce threats to regional stability
posed by terrorists based in Afghanistan and Pakistan, in particular by naming
anti-Indian terrorists as priority US concerns and targets.
To enhance prospects for strategic stability in Southern
Asia, the United States should devote renewed attention to nuclear risk
reduction measures, starting with the establishment of a dedicated, secure, and
redundant India-Pakistan nuclear hotline, supported by bilateral
agreements and practices, and should urge both India and China to enter
strategic stability talks with each other.
Additionally,
the United States should raise the idea of a new transregional forum on
regional and global strategic stability that would include an “N-7” (China,
France, India, Pakistan, Russia, the United Kingdom, and the United States) to
discuss and strengthen stabilizing nuclear norms.
Washington
should also deepen its defense cooperation with New Delhi in ways that
contribute to India’s capacity for territorial defense and a stabilizing
conventional and nuclear deterrent without exacerbating the regional arms race
or increasing the likelihood of nuclear crises.
To better manage crises between the nuclear-armed states of
Southern Asia, the United States should prepare its policymakers for complex
nuclear crisis diplomacy in the region by conducting gaming exercises within
the intelligence community; developing a generalized policy playbook for
India-Pakistan, India-China, and overlapping India-Pakistan-China crises; and
routinely sharing insights from these planning documents with all incoming
senior officials in relevant US government agencies, embassies, and bases.
Additionally, Washington should work to improve its
indicators and warning for regional crises and prepare to share information
publicly and with regional actors to combat disinformation in instances where
doing so could prevent or de-escalate a conflict.
It
should offer to help New Delhi enhance the resilience of its information and
communications channels. It should also coordinate with trusted third parties
to better prepare for crisis diplomacy so that they can serve as intermediaries
and honest brokers in future crises.