• Research
  • Strategic Europe
  • About
  • Experts
Carnegie Europe logoCarnegie lettermark logo
EUNATO
  • Donate
{
  "authors": [
    "James M. Acton"
  ],
  "type": "legacyinthemedia",
  "centerAffiliationAll": "dc",
  "centers": [
    "Carnegie Endowment for International Peace"
  ],
  "collections": [
    "Entanglement"
  ],
  "englishNewsletterAll": "ctw",
  "nonEnglishNewsletterAll": "",
  "primaryCenter": "Carnegie Endowment for International Peace",
  "programAffiliation": "NPP",
  "programs": [
    "Nuclear Policy"
  ],
  "projects": [],
  "regions": [],
  "topics": [
    "Security",
    "Military",
    "Nuclear Policy",
    "Arms Control"
  ]
}

Source: Getty

In The Media

The Weapons Making Nuclear War More Likely

The increasingly blurred line between nuclear and conventional weapons heightens the danger of nuclear war.

Link Copied
By James M. Acton
Published on Feb 8, 2019

Source: BBC News

The threat of nuclear war fills people with fear. Yet the increasingly blurred line between nuclear and conventional weapons is heightening the danger.

Nuclear and non-nuclear weapons have never been entirely separate from each other. The B-29 bomber, for example, was designed and built to deliver conventional bombs. But on 6 August 1945 one of these aircraft, Enola Gay, dropped a nuclear weapon on the Japanese city of Hiroshima. Seventy-four years later, nine countries now possess thousands of nuclear weapons, which are becoming increasingly entangled with non-nuclear weapons.

The global stockpile of nuclear weapons is down from an all-time high of about 64,000 in 1986 - but some contemporary weapons are about 300 times more powerful than the bomb dropped on Hiroshima. Apart from the UK, all nuclear-armed states possess dual-use weapons that can be used to deliver nuclear or conventional warheads. These include missiles of ever-longer ranges.Russia, for example, has recently deployed a new ground-launched cruise missile, the 9M729. The US believes this missile is dual-use and has been tested to distances "well over" 500km (310 miles).

The missile is at the heart of US claims Russia breached the terms of a treaty banning the use of medium- and intermediate-range missiles. The US has announced its withdrawal from the pact, raising concerns about a new arms race.

China, meanwhile, has recently been showing off its newest missile, the DF-26. Capable of travelling more than 2,500km (1,553 miles), it appears to be the world's longest range dual-use missile capable of a precision strike.

There are a number of scenarios in which such missiles could inadvertently increase the chance of a nuclear war. The most obvious is that in a conflict, they might be launched with conventional warheads but mistaken for nuclear weapons. This ambiguity could prompt the adversary to launch an immediate nuclear response. It is difficult to know whether it would choose this course of action - or wait until the weapons had detonated and it became clear how they were armed.

In practice, the greatest danger with dual-use missiles may lie elsewhere: misidentification before they have even been launched. Imagine that China dispersed lorry-mounted DF-26 missiles loaded with nuclear warheads around its territory. The U.S., wrongly believing them to be conventionally armed, might decide to try to destroy them. By attacking them, it could inadvertently provoke China into launching those nuclear weapons it still had before they could be destroyed.

Satellite systems

Dual-use missiles are not the only way in which nuclear and non-nuclear weapons are increasingly entangled. For example, all nuclear forces need a communication system - which could include satellites. But, increasingly, these nuclear command-and-control systems are also being used to support non-nuclear operations.

The U.S., for example, operates satellites to provide warning of attacks with nuclear-armed or conventionally armed ballistic missiles. In a conflict between Nato and Russia, these could be used to detect short-range conventional ballistic missiles launched by Russia - as the first step towards shooting them down. If this strategy was successful, Russia could decide to attack the US early-warning satellites in response. In fact, the US intelligence community has warned that Russia is developing ground-based laser weapons for that exact purpose.

But blinding U.S. early-warning satellites would not simply undermine its ability to spot conventionally armed missiles. It would also compromise the ability of the US to detect nuclear-armed ballistic missiles and could raise fears that Russia was planning a nuclear attack on the US. Indeed, the latest US Nuclear Posture Review - the key official statement of US nuclear policy - explicitly threatens to consider the use of nuclear weapons against any state that attacks its nuclear command-and-control systems. This threat applies whether or not that state has used nuclear weapons first.

Weapons ban

The governments of nuclear-armed states are presumably aware of the growing entanglement between nuclear and non-nuclear weapons. They are also aware of at least some of the associated dangers. However, working to reduce these risks does not seem to be a priority. The focus remains on enhancing their military capabilities, to deter one another.

One option could be for countries to try to agree a ban on weapons that could threaten nuclear command-and-control satellites. But for the moment, governments of nuclear-armed states are reluctant to sit around the same table. As a result, the prospects of such cooperation appear to be bleak.

This article was originally published in BBC News.

About the Author

James M. Acton

Jessica T. Mathews Chair, Co-director, Nuclear Policy Program

Acton holds the Jessica T. Mathews Chair and is co-director of the Nuclear Policy Program at the Carnegie Endowment for International Peace.

    Recent Work

  • Commentary
    The Latest Iran Deal Ignores the Lessons of the Past

      James M. Acton

  • Other
    Unpacking Trump’s National Security Strategy
      • Saskia Brechenmacher
      • Cecily Brewer
      • +18

      James M. Acton, Saskia Brechenmacher, Cecily Brewer, …

James M. Acton
Jessica T. Mathews Chair, Co-director, Nuclear Policy Program
James M. Acton
SecurityMilitaryNuclear PolicyArms Control

Carnegie does not take institutional positions on public policy issues; the views represented herein are those of the author(s) and do not necessarily reflect the views of Carnegie, its staff, or its trustees.

More Work from Carnegie Europe

  • Commentary
    Strategic Europe
    Taking the Pulse: Is European Diplomacy on Iran Outdated?

    When the U.S.-Iran memorandum of understanding was announced, the UK, France, Germany, and Italy declared their readiness to help demine the Strait of Hormuz and lift nuclear sanctions on Tehran. But does Europe need new tools to recover a diplomatic role?

      • Rym Momtaz

      Rym Momtaz, ed.

  • Commentary
    Strategic Europe
    France and Germany Need Their Own Situation Room

    The Franco-German relationship is on the rocks again. But unlike previous moments of tension, the epochal changes on the world stage require that both step up investment in their bilateral ties.

      • Rym Momtaz

      Rym Momtaz

  • Commentary
    Strategic Europe
    European Security Strategy: In Search of a New Ambition

    The EU is putting together a new security strategy to meet today’s myriad challenges. But for any proposal to be effective, the union needs to grapple with its identity and ambitions.

      Pierre Vimont

  • Commentary
    Strategic Europe
    Europe Should Not Let Nuclear Nonproliferation Die

    Amid uncertainty caused by the Iran war, the global drive for nonproliferation has stalled. With Europe diplomatically marginalized and countries reassessing their nuclear options, efforts to curb the spread of nuclear weapons risk becoming irrelevant.

      • Jane Darby Menton

      Jane Darby Menton

  • Commentary
    Can Europe Compete with the United States and China?

    Between the United States’ market-driven approach and China's state-led industrial strategy, Europe is reckoning with how it can remain competitive in the global economy. But is Europe in danger of becoming a U.S. or China colony?

      Noah Barkin, Anu Bradford

Get more news and analysis from
Carnegie Europe
Carnegie Europe logo, white
Rue du Congrès, 151000 Brussels, Belgium
  • Research
  • Strategic Europe
  • About
  • Experts
  • Projects
  • Events
  • Contact
  • Careers
  • Privacy
  • For Media
  • Gender Equality Plan
Get more news and analysis from
Carnegie Europe
© 2026 Carnegie Endowment for International Peace. All rights reserved.