216 Book Reviews TECHNOLOGY AND CULTURE Guarding the Guardians: Civilian Control ofNuclear 'Weapons in the United States. By Peter Douglas Feaver. Ithaca, N.Y.: Cornell University Press, 1992. Pp. xviii+ 261; notes, index. $34.50. Historical and analytical works abound about the development of nuclear weapons, proposed strategies, and their impact on interna tional relations. Few exist about their control. Peter Douglas Feaver has remedied this lack, to a degree, hampered as he was by the large number of still-classified documents. It is a story of the tension between civilian and military authorities over who shall have custody and control of nuclear weapons. Elected leaders insist on the right to decide if these explosives will be used (termed assertive control), while the military brass want to be as free as possible to respond to enemy action (termed delegative control). Within the democratic ideal of a military that is subordinate to civilian leaders, the tension also involves the technological requirement by civilians that nuclear weapons never explode unintentionally, and the military’s insistence that they always detonate when employed. Assertive control of a weapon was a new concept in 1945. It succeeded initially because Harry Truman sensed that the A-bomb was different from other weapons: it had symbolic value. Indeed, he came to argue that it should not be used again, a position the armed services found preposterous. Time and events eroded strong assertive control. The Soviet Union exploded its first nuclear weapon in 1949, inspiring much debate about the need for a rapid response to an attack—or even a preventive strike. As the stockpile increased dra matically in the 1950s, including an array of tactical weapons and weapons at sea, it became impractical to keep them under civilian control. “Control” was therefore redefined; the military would have custody in most cases, while civilians retained the authority to direct their use. At the same time, the military acquired technological competence, undercutting one of the Atomic Energy Commission’s (AEC) strong suits, while Berlin crises, the Korean War, and other hot events in the Cold War provided strong arguments for having weapons at the ready. Dwight Eisenhower’s style of leadership encouraged more delegative control, and as more and more finished weapons were delivered to Europe, Asia, the navy at sea, and to stateside bases, the “AEC gradually went from controller to auditor to mere supplier” (p. 136). The Cuban missile crisis alerted John Kennedy to the need for greater assertive control, which by this time was exceedingly difficult. Technology, however, provided a means to reaffirm civilian leader ship. In the early 1950s, environmental sensing devices (ESDs) were developed to block unauthorized or accidental explosions. These prevented the weapon from arming unless it experienced the accel eration, spin, or free fall that were expected in the weapon’s planned TECHNOLOGY AND CULTURE Book Reviews 217 use. By the 1960s, ESDs led to the construction of permissive action links (PALs), mechanical or electromagnetic locks on the warheads. These use-control devices generally required five or more numbers to be entered; they grew quite sophisticated and eventually incorporated locks that would stay closed after a few failed attempts to open them (by a terrorist, for example). The numbers are widely believed to be held only by the president, but in fact they are found at various levels of command. PALs are now deployed on all weapons except those at sea (where communications from headquarters might be impossible), and the PAL concept has been extended to delivery vehicles, such as aircraft and missiles, to prevent dropping or bring even unarmed warheads. The brst third of Guarding the Guardians is a political science essay, with a conventional amount ofjargon, on the theory of civilian control of nuclear weapons. Feaver advances several propositions that form his model of control, a model that frankly seems to consist of commonsense statements. The rest of the book is a history of custodial policy from the administration of Truman to that of George Bush, with far greater emphasis on the earlier years. While this monograph is intrinsically interesting, its focus is not on technology, and the discussion of PALs and the trade-off in constructing weapons that always...
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