China and the Nuclear Non‑Proliferation Regime

Abstract

This article surveys China's policy towards nuclear non-proliferation regime and contests view that China has now completed transition from a challenger to an upholder of global non-proliferation regime. It argues that the learning curve hypothesis and bureaucratic politics and profit motives arguments provide only a partial explanation of China's shifting but ambiguous and contradictory policy towards non-proliferation. China has cleverly played the proliferation card by exploiting loopholes in nonproliferation regime and contradictions in major power relationships so as to serve its national security interests. The article examines factors that have led Beijing to disregard non-proliferation regime in past and might make it continue to do so in future. It also analyses changing Asian security environment and its impact on China's nonproliferation commitments in future. Introduction The global nuclear non-proliferation (NNP) regime is an outgrowth of steps taken during second half of twentieth century to halt horizontal spread of nuclear weapons. The NNP regime consists of several components. These are Vienna-based International Atomic Energy Agency (IAEA), founded in 1957; 1953 Partial Test Ban Treaty (PTBT) banning testing of nuclear weapons in atmosphere, outer space, or under water; 1968 Nuclear Non-Proliferation Treaty (NPT) which was extended indefinitely in 1995; London-based Nuclear Suppliers' Group (NSG), formed in 1974, which requires IAEA safeguards on all of its participants' nuclear exports; 1987 Missile Technology Control Regime (MTCR) aimed at halting proliferation of nuclear-capable ballistic missiles and other unmanned delivery systems; 1996 Wassenaar Arrangement (a successor to Cold War era's COCOM) covering conventional weapons and dual-use exports; and Zangger Committee which covers nuclear-related exports. T he 1996 Comprehensive Test Ban Treaty (CTBT), which has yet to come into force, further constrains all states from conducting nuclear tests. In addition, nuclear weapons free zones (NWFZs) in Latin America, South Pacific, and Africa have further strengthened regime. In 1995, Association of Southeast Asian Nations (ASEAN) proposed establishment of a NWFZ in Southeast Asia, and in 1997 five Central Asian states issued Tashkent statement proposing a NWFZ for Central Asia. The overall record of NNP regime has been a mixture of success and failure. On positive side, five decades of international efforts at curbing spread of nuclear weapons have created a political and normative climate in which no state can easily declare its nuclear intentions. The unsuitability of nuclear weapons to most military situations also renders them useless. Moreover, a number of nuclearcapable states -- notably Argentina, Brazil, South Africa, and former Soviet republics of Ukraine, Belarus and Kazakhstan -- have in recent years agreed to abandon strive for, or dismantle their nuclear weapons capabilities. In this sense, regime has been fairly successful. On negative side, campaign for nuclear disarmament appears to be failing just when success seemed at hand. Since mid1980s, regime has been undermined by emergence of new suppliers of nuclear technology and delivery systems, as well as by an increase in number of threshold or new nuclear weapons states (NWSs).. Apart from five declared NWSs (the United States, Russia, Britain, France and China), and two new self-declared NWSs (India and Pakistan), several other nations (Israel, Japan, North Korea, and Iran) are widely believed to have made significant progress towards acquiring nuclear weapons capabilities. The changes in international system and global nuclear balance of power since end of Cold War have thrown up new challenges and opportunities for NNP regime. …