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How to Deal With North Korea
There are no good options. But some are worse than others.
MARK BOWDEN
JULY/AUGUST 2017 ISSUE
Thirty minutes. That’s about how long it would take a nuclear-tipped intercontinental ballistic missile (ICBM) launched from North Korea to reach Los Angeles. With the powers in Pyongyang working doggedly toward making this possible—building an ICBM and shrinking a nuke to fit on it—analysts now predict that Kim Jong Un will have the capability before Donald Trump completes one four-year term.
About which the president has tweeted, simply, “It won’t happen!”
Though given to reckless oaths, Trump is not in this case saying anything that departs significantly from the past half century of futile American policy toward North Korea. Preventing the Kim dynasty from having a nuclear device was an American priority long before Pyongyang exploded its first nuke, in 2006, during the administration of George W. Bush. The Kim regime detonated four more while Barack Obama was in the White House. In the more than four decades since Richard Nixon held office, the U.S. has tried to control North Korea by issuing threats, conducting military exercises, ratcheting up diplomatic sanctions, leaning on China, and most recently, it seems likely, committing cybersabotage.
For his part, Trump has also tweeted that North Korea is “looking for trouble” and that he intends to “solve the problem.” His administration has leaked plans for a “decapitation strike” that would target Kim, which seems like the very last thing a country ought to announce in advance.
None of which, we should all pray, will amount to much. Ignorant of the long history of the problem, Trump at least brings fresh eyes to it. But he is going to collide with the same harsh truth that has stymied all his recent predecessors: There are no good options for dealing with North Korea. Meanwhile, he is enthusiastically if unwittingly playing the role assigned to him by the comic-book-style foundation myth of the Democratic People’s Republic of Korea.
The myth holds that Korea and the Kim dynasty are one and the same. It is built almost entirely on the promise of standing up to a powerful and menacing foreign enemy. The more looming the threat—and Trump excels at looming—the better the narrative works for Kim Jong Un. Nukes are needed to repel this threat. They are the linchpin of North Korea’s defensive strategy, the single weapon standing between barbarian hordes and the glorious destiny of the Korean people—all of them, North and South. Kim is the great leader, heir to divinely inspired ancestors who descended from Mount Paektu with mystical, magical powers of leadership, vision, diplomatic savvy, and military genius. Like his father, Kim Jong Il, and grandfather Kim Il Sung before him, Kim is the anointed defender of all Koreans, who are the purest of all races. Even South Korea, the Republic of Korea, should be thankful for Kim because, if not for him, the United States would have invaded long ago.
This racist mythology and belief in the supernatural status of the Mount Paektu bloodline defines North Korea, and illustrates how unlikely it is that diplomatic pressure will ever persuade the present Dear Leader to back down. Right now the best hope for keeping the country from becoming an operational nuclear power rests, as it long has, with China, which may or may not have enough economic leverage to influence Kim’s policy making—and which also may not particularly want to do so, since having a friendly neighbor making trouble for Washington and Seoul serves Beijing’s interests nicely at times.
American sabotage has likely played a role in Pyongyang’s string of failed missile launches in recent years. According to David E. Sanger and William J. Broad of The New York Times, as the U.S. continued its covert cyberprogram last year, 88 percent of North Korea’s flight tests of its intermediate-range Musudan missiles ended in failure. Given that these missiles typically exploded, sometimes scattering in pieces into the sea, determining the precise cause—particularly for experts outside North Korea—is impossible. Failure is a big part of missile development, and missiles can blow up on their own for plenty of reasons, but the percentage of failures certainly suggests sabotage. The normal failure rate for developmental missile tests, according to The Times, is about 5 to 10 percent. It’s also possible that the sabotage program is not computer-related; it might, for instance, involve more old-fashioned techniques such as feeding faulty parts into the missiles’ supply chain. If sabotage of any kind is behind the failures, however, no one expects it to do more than slow progress. Even failed tests move Pyongyang closer to its announced goal: possessing nuclear weapons capable of hitting U.S. cities.
Kim’s regime may be evil and deluded, but it’s not stupid. It has made sure that the whole world knows its aims, and it has carried out public demonstrations of its progress, which double as a thumb in the eye of the U.S. and South Korea. The regime has also moved its medium-range No-dong and Scud missiles out of testing and into active service, putting on displays that show their reach—which now extends to South Korean port cities and military sites, as well as to the U.S. Marine Corps Air Station in Iwakuni, Japan. In mid-May, the regime successfully fired a missile that traveled, in a high arc, farther than one ever had before: 1,300 miles, into the Sea of Japan. Missile experts say it could have traveled 3,000 miles, well past American forces stationed in Guam, if the trajectory had been lower. Jeffrey Lewis, an arms-control expert at the Middlebury Institute of International Studies, wrote in Foreign Policy in March:
North Korea’s military exercises leave little doubt that Pyongyang plans to use large numbers of nuclear weapons against U.S. forces throughout Japan and South Korea to blunt an invasion. In fact, the word that official North Korean statements use is “repel.” North Korean defectors have claimed that the country’s leaders hope that by inflicting mass casualties and destruction in the early days of a conflict, they can force the United States and South Korea to recoil from their invasion.
This isn’t new. This threat has been present for more than 20 years. “It is widely known inside North Korea that [the nation] has produced, deployed, and stockpiled two or three nuclear warheads and toxic material, such as over 5,000 tons of toxic gases,” Choi Ju-hwal, a North Korean colonel who defected, told a U.S. Senate subcommittee in 1997. “By having these weapons, the North is able to prevent itself from being slighted by such major powers as the United States, Russia, China, and Japan, and also they are able to gain the upper hand in political negotiations and talks with those superpowers.”
For years North Korea has had extensive batteries of conventional artillery—an estimated 8,000 big guns—just north of the demilitarized zone (DMZ), which is less than 40 miles from Seoul, South Korea’s capital, a metropolitan area of more than 25 million people. One high-ranking U.S. military officer who commanded forces in the Korean theater, now retired, told me he’d heard estimates that if a grid were laid across Seoul dividing it into three-square-foot blocks, these guns could, within hours, “pepper every single one.” This ability to rain ruin on the city is a potent existential threat to South Korea’s largest population center, its government, and its economic anchor. Shells could also deliver chemical and biological weapons. Adding nuclear ICBMs to this arsenal would put many more cities in the same position as Seoul. Nuclear-tipped ICBMs, according to Lewis, are the final piece of a defensive strategy “to keep Trump from doing anything regrettable after Kim Jong Un obliterates Seoul and Tokyo.”
Video: The North Korea Crisis, Explained
How should the United States proceed?
What to do about North Korea has been an intractable problem for decades. Although shooting stopped in 1953, Pyongyang insists that the Korean War never ended. It maintains as an official policy goal the reunification of the Korean peninsula under the Kim dynasty.
As tensions flared in recent months, fanned by bluster from both Washington and Pyongyang, I talked with a number of national-security experts and military officers who have wrestled with the problem for years, and who have held responsibility to plan and prepare for real conflict. Among those I spoke with were former officials from the White House, the National Security Council, and the Pentagon; military officers who have commanded forces in the region; and academic experts.
From these conversations, I learned that the U.S. has four broad strategic options for dealing with North Korea and its burgeoning nuclear program.
1. Prevention: A crushing U.S. military strike to eliminate Pyongyang’s arsenals of mass destruction, take out its leadership, and destroy its military. It would end North Korea’s standoff with the United States and South Korea, as well as the Kim dynasty, once and for all.
2. Turning the screws: A limited conventional military attack—or more likely a continuing series of such attacks—using aerial and naval assets, and possibly including narrowly targeted Special Forces operations. These would have to be punishing enough to significantly damage North Korea’s capability—but small enough to avoid being perceived as the beginning of a preventive strike. The goal would be to leave Kim Jong Un in power, but force him to abandon his pursuit of nuclear ICBMs.
3. Decapitation: Removing Kim and his inner circle, most likely by assassination, and replacing the leadership with a more moderate regime willing to open North Korea to the rest of the world.
4. Acceptance: The hardest pill to swallow—acquiescing to Kim’s developing the weapons he wants, while continuing efforts to contain his ambition.
Let’s consider each option. All of them are bad.
1 | Prevention
An all-out attack on North Korea would succeed. The U.S. and South Korea are fully capable of defeating its military forces and toppling the Kim dynasty.
For sheer boldness and clarity, this is the option that would play best to President Trump’s base. (Some campaign posters for Trump boasted, finally someone with balls.) But to work, a preventive strike would require the most massive U.S. military attack since the first Korean War—a commitment of troops and resources far greater than any seen by most Americans and Koreans alive today.
What makes a decisive first strike attractive is the fact that Kim’s menace is growing. Whatever the ghastly toll in casualties a peninsular war would produce today, multiply it exponentially once Kim obtains nuclear ICBMs. Although North Korea already has a million-man army, chemical and biological weapons, and a number of nuclear bombs, its current striking range is strictly regional. A sudden hammer blow before Kim’s capabilities go global is precisely the kind of solution that might tempt Trump.
Being able to reach U.S. territory with a nuclear weapon—right now the only adversarial powers with that ability are Russia and China—would make North Korea, because of its volatility, the biggest direct threat to American security in the world. Trump’s assertion of “America First” would seem to provide a rationale for drastic action regardless of the consequences to South Koreans, Japanese, and other people in the area. By Trumpian logic, the cost of all-out war might be acceptable if the war remains on the other side of the world—a thought that ought to keep South Koreans and Japanese up at night. The definition of “acceptable losses” depends heavily on whose population is doing the dying.
The brightest hope of prevention is that it could be executed so swiftly and decisively that North Korea would not have time to respond. This is a fantasy.
“When you’re discussing nuclear issues and the potential of a nuclear attack, even a 1 percent chance of failure has potentially catastrophically high costs,” Abe Denmark, a former deputy assistant secretary of defense for East Asia under Barack Obama, told me in May. “You could get people who will give you General Buck Turgidson’s line from Dr. Strangelove,” he said, referring to the character played by George C. Scott in Stanley Kubrick’s classic film, who glibly acknowledges the millions of lives likely to be lost in a nuclear exchange by telling the president, “I’m not saying we wouldn’t get our hair mussed.”
Kim’s arsenal is a tough target. “It’s not possible that you get 100 percent of it with high confidence, for a couple of reasons,” Michèle Flournoy, a former undersecretary of defense in the Obama administration and currently the CEO of the Center for a New American Security, told me when we spoke this spring. “One reason is, I don’t believe anybody has perfect intelligence about where all the nuclear weapons are. Two, I think there is an expectation that, when they do ultimately deploy nuclear weapons, they will likely put them on mobile systems, which are harder to find, track, and target. Some may also be in hardened shelters or deep underground. So it’s a difficult target set—not something that could be destroyed in a single bolt-from-the-blue attack.”
North Korea is a forbidding, mountainous place, its terrain perfect for hiding and securing things. Ever since 1953, the country’s security and the survival of the Kim dynasty have relied on military stalemate. Resisting the American threat—surviving a first strike with the ability to respond—has been a cornerstone of the country’s military strategy for three generations.
And with only a few of its worst weapons, North Korea could, probably within hours, kill millions. This means an American first strike would likely trigger one of the worst mass killings in human history. In 2005, Sam Gardiner, a retired U.S. Air Force colonel who specialized in conducting war games at the National War College, estimated that the use of sarin gas alone would produce 1 million casualties. Gardiner now says, in light of what we have learned from gas attacks on civilians in Syria, that the number would likely be three to five times greater. And today North Korea has an even wider array of chemical and biological weapons than it did 12 years ago—the recent assassination of Kim’s half brother, Kim Jong Nam, demonstrated the potency of at least one compound, the nerve agent VX. The Kim regime is believed to have biological weapons including anthrax, botulism, hemorrhagic fever, plague, smallpox, typhoid, and yellow fever. And it has missiles capable of reaching Tokyo, a metropolitan area of nearly 38 million. In other words, any effort to crush North Korea flirts not just with heavy losses, but with one of the greatest catastrophes in human history.
Kim would bear the greatest share of responsibility for such a catastrophe, but for the U.S. to force his hand with a first strike, to do so without severe provocation or an immediate and dire threat, would be not only foolhardy but morally indefensible. That this decision now rests with Donald Trump, who has not shown abundant capacity for moral judgment, is not reassuring.
If mass civilian killings were not a factor—if the war were a military contest alone—South Korea by itself could defeat its northern cousin. It would be a lopsided fight. South Korea’s economy is the world’s 11th-largest, and in recent decades the country has competed with Saudi Arabia for the distinction of being the No. 1 arms buyer. And behind South Korea stands the formidable might of the U.S. military.
But lopsided does not necessarily mean easy. The combined air power would rapidly defeat North Korea’s air force, but would face ground-to-air missiles—a gantlet far more treacherous than anything American pilots have encountered since Vietnam. In the American method of modern war, which depends on control of the skies, a large number of aircraft are aloft over the battlefield at once—fighters, bombers, surveillance planes, drones, and flying command and control platforms. Maintaining this flying armada would require eliminating Pyongyang’s defenses.
Locating and securing North Korea’s nuclear stockpiles and heavy weapons would take longer. Some years ago, Thomas McInerney, a retired Air Force lieutenant general and a Fox News military analyst who has been an outspoken advocate of a preventive strike, estimated with remarkable optimism that eliminating North Korea’s military threat would take 30 to 60 days.
But let’s suppose (unrealistically) that a preventive strike did take out every single one of Kim’s missiles and artillery batteries. That still leaves his huge, well-trained, and well-equipped army. A ground war against it would likely be more difficult than the first Korean War. In David Halberstam’s book The Coldest Winter, he described the memories of Herbert “Pappy” Miller, a sergeant with the First Cavalry Division, after a battle with North Korean troops near the village of Taejon in 1950:
No matter how well you fought, there were always more. Always. They would slip behind you, cut off your avenue of retreat, and then they would hit you on the flanks. They were superb at that, Miller thought. The first wave or two would come at you with rifles, and right behind them were soldiers without rifles ready to pick up the weapons of those who had fallen and keep coming. Against an army with that many men, everyone, he thought, needed an automatic weapon.
Today, American soldiers would all have automatic weapons—but so would the enemy. The North Koreans would not just make a frontal assault, either, the way they did in 1950. They are believed to have tunnels stretching under the DMZ and into South Korea. Special forces could be inserted almost anywhere in South Korea by tunnel, aircraft, boat, or the North Korean navy’s fleet of miniature submarines. They could wreak havoc on American and South Korean air operations and defenses, and might be able to smuggle a nuclear device to detonate under Seoul itself. And for those America Firsters who might view Asian losses as acceptable, consider that there are also some 30,000 Americans on the firing lines—and that even if those lives are deemed expendable, another immediate casualty of all-out war in Korea would likely be South Korea’s booming economy, whose collapse would be felt in markets all over the world.
So the cost of even a perfect first strike would be appalling. In 1969, long before Pyongyang had missiles or nukes, the risks were bad enough that Richard Nixon—hardly a man timid about using force—opted against retaliating after two North Korean aircraft shot down a U.S. spy plane, killing all 31 Americans on board.
Jim Walsh is a senior research associate at the MIT Security Studies Program and a board member of the Center for Arms Control and Non-Proliferation. I talked with him this spring, as tensions between North Korea and the U.S. escalated. “I had a friend who just returned from Seoul, where he had a chance to talk with U.S. Forces Korea—uniformed military officers—and he asked them, ‘Do you have a capability to remove North Korea’s nuclear weapons?’ And the response was ‘Can we use nuclear weapons or not?’ ”
Putting aside the irony of using nuclear weapons to prevent the use of nuclear weapons, the answer Walsh got in that scenario was still: No guarantee.
“If we don’t get everything, then we have a really pissed-off adversary who possesses nuclear weapons who has just been attacked,” Walsh said. “It’s not clear even with nukes that you could get all the artillery. And if you did use nukes, is that something South Korea is going to sign up for? There’s three minutes’ flight time from just north of the DMZ to Seoul. Do you really want to be dropping nuclear weapons that close to our ally’s capital? Think of the radioactive fallout. If you don’t take out all the batteries, then you have thousands of munitions raining down on Seoul. So I don’t get how an all-out attack works.” Even if a U.S. president could get Americans to support such an attack, Walsh added, the South Koreans would likely object. “All the fighting is going to happen on Korean soil. So it seems to me the South Koreans should certainly have a say in this. I don’t see them signing off.”
Especially not now, with the election in May of Moon Jae-in as president. Moon is a liberal who has said he might be willing to reopen talks with Pyongyang and, far from endorsing aggressive action, has criticized the recent deployment around Seoul of America’s thaad (Terminal High Altitude Area Defense) missiles, which are designed to intercept incoming missiles.
These aren’t the only problems with a preventive strike. To be effective, it would depend on surprise, on delivering the maximum amount of force as quickly as possible—which would in turn require a significant buildup of U.S. forces in the region. At the start of the Iraq War, American warplanes flew about 800 sorties a day. An all-out attack on North Korea, a far more formidable military power than Saddam Hussein’s Iraq, would almost certainly require more. In order to resist a ground invasion of South Korea, the U.S. would need to bolster the assets currently in place. U.S. Special Forces would need to be positioned to go after crucial nuclear sites and missile platforms; ships would have to be stationed in the Sea of Japan and the Yellow Sea. It’s highly improbable that all of this could happen without attracting Pyongyang’s notice. One of the things North Korea is better at than its southern neighbor is spying; recruiting and running spies is much easier in a free society than in a totalitarian one.
But suppose, just for argument’s sake, that a preventive strike could work without any of the collateral damage I’ve been describing. Suppose that U.S. forces could be positioned secretly, and that President Moon were on board. Suppose, further, that Pyongyang’s nukes could be disabled swiftly, its artillery batteries completely silenced, its missile platforms flattened, its leadership taken out—all before a counterstrike of any consequence could be made. And suppose still further that North Korea’s enormous army could be rapidly defeated, and that friendly casualties would remain surprisingly low, and that South Korea’s economy would not be significantly hurt. And suppose yet further that China and Russia agreed to sit on the sidelines and watch their longtime ally fall. Then Kim Jong Un, with his bad haircut and his legion of note-taking, big-hat-wearing, kowtowing generals, would be gone. South Korea’s fear of invasion from the North, gone. The menace of the state’s using chemical and biological weapons, gone. The nuclear threat, gone.
Such a stunning outcome would be a mighty triumph indeed! It would be a truly awesome display of American power and know-how.
What would be left? North Korea, a country of more than 25 million people, would be adrift. Immediate humanitarian relief would be necessary to prevent starvation and disease. An interim government would have to be put in place. If Iraq was a hard country to occupy and rebuild, imagine a suddenly stateless North Korea, possibly irradiated and toxic, its economy and infrastructure in ruins. There could still be hidden stockpiles of nuclear, biological, and chemical weapons scattered around the country, which would have to be found and secured before terrorists got to them. “Success,” in other words, would create the largest humanitarian crisis of modern times—Syria’s miseries would be a playground scuffle by comparison. Contemplating such a collapse in The Atlantic back in 2006, Robert D. Kaplan wrote that dealing with it “could present the world—meaning, really, the American military—with the greatest stabilization operation since the end of World War II.”
How long would it be before bands of armed fighters from Kim’s shattered army began taking charge, like Afghan warlords, in remote regions of the country? How long before they began targeting American occupation forces? Imagine China and South Korea beset by millions of desperate refugees. Would China sit still for a unified, American-allied Korea on its border? Having broken North Korea, the U.S. would own it for many, many years to come. Which would not be easy, or pretty.
The ensuing chaos and carnage and ongoing cost might just make America miss Kim Jong Un’s big-bellied strut.
Which brings us to the second option.
2 | Turning the Screws
What if the United States aimed to punish Pyongyang without provoking a full-on war—to leave Kim Jong Un in power and the North Korean state intact, but without a nuclear arsenal?
Given all the saber-rattling in Washington, but also the enormous downsides to a preventive strike, this middle route seems to be the most likely option that involves using force. The strategy would be to respond to the next North Korean affront—a nuclear test or missile launch or military attack—sharply enough to get Pyongyang’s full attention. The strike would have to set back the regime’s efforts significantly without looking like the start of an all-out, preventive war. If Kim responded with a counterattack, another, perhaps more devastating, American blow would follow. The hope is that this process might convince him that the U.S., as Trump has promised, will not allow him to succeed in developing a weapons program capable of threatening the American mainland.
Continued...
