Madeleine Rees, Head of the Women's Rights and Gender Unit, Office of the United Nations High Commissioner for Human Rights, will address "The Failures of Identification and Response to Trafficking of Women in Eastern Europe."

Earlier this month Chinese revelers welcomed the new lunar year with a few more candles than usual. The country was gripped by a crisis in electric power production that caused California-style blackouts across the central and southern parts of the country. Power plants could not keep up with demand, especially because they didn't have enough coal on hand to burn.

The immediate causes of China's power crisis are straightforward. Snow storms disrupted the railroads that carry most coal to power plants. Record low temperatures also boosted demand for electricity and coal. But there was a deeper cause at work. China's free-market policies—the same ones that led to China's extraordinary growth in the past decade—have eroded the government's ability to control its economy. Economic activity, by design, is shifting away from state-owned enterprises and central planning. But Beijing doesn't have structures in place to control those aspects of the economy it doesn't own outright. Market reforms are making Beijing less and less relevant to what's really going on in the economy, threatening to turn China into a "weak state." And it's not just China—India, too, is having trouble regulating its industry and economy. The phenomenon is a dark cloud on the Asian century.

If this all sounds abstract, consider that China's blackouts were mainly a byproduct of the government's struggle to manage the planned and market-based parts of the economy side-by-side. Today, the Chinese leadership is worrying about inflation, but they have few useful tools to slow the rise in prices. A few years ago, Beijing might have dampened industrial growth by closing the spigot of finance from state-owned banks. But many newly deregulated state enterprises, as well as new privately owned companies, have found other sources of capital, including caches of massive profits accumulated over the years. One of the few industries Beijing still controls is power—it owns nearly every aspect of the grid, from generators to distributors. So Beijing decided to try and quell inflation by lowering electricity prices.

The energy industry, however, is bigger than just power generation and distribution. It includes the coal industry, which has been the object of market reforms. Starting two years ago the country largely abandoned the traditional planning system for allocating and pricing coal, the main fuel for power generators and one of the power companies' largest costs. Suppliers and buyers were allowed to negotiate on their own terms. With demand for electricity skyrocketing, suppliers had the upper hand, and coal prices rose. With Beijing keeping prices artificially low, power plants could not pass these costs to the consumer. They responded by cutting back on coal orders. As coal inventories dwindled, power generators cut back on capacity, and the lights went out.

Beijing's lack of practical control over large swaths of industry explains an increasing number of China's woes. The environment is a case in point. The government has an elaborate apparatus for environmental regulation, with strict laws on the books, but it is unwilling to enforce the measures for fear of stepping on the toes of local authorities, who usually push industrial development at the expense of greenery. Changing that power structure will require politically dangerous rewiring of the ruling Communist Party's power base. To be sure, Beijing is still powerful in some areas such as Internet regulation. And its recent success in imposing safety standards to close dangerous small coal mines, another area where Beijing is flexing its muscle, probably inadvertently contributed to the current coal crisis. Overall, however, what's most striking is Beijing's inability to impose needed regulation nor to predict what will happen when it does regulate. For example, a keystone in the government's effort to avoid future energy crises is an aggressive plan to improve energy efficiency about 4 percent per year over the current decade. The actual effect of Beijing's efficiency policies is barely one third that level.

These are not passing problems. They reveal a deep weakness in China's administration because the government has been unable to replace its Soviet-style planning system with an alternative scheme that is better suited to a market economy. Like an American film on the Wild West, much of the economy is governed by central strictures that don't really have much impact.

India is also plagued by administrative weakness—and the problems are getting worse as the Indian economy takes off and government struggles to address the byproducts of rapid economic growth. Large pockets of the Indian power grid are unreliable because Indian policymakers tinker with electricity prices in an effort to deliver political favors. (Electricity supplied to most Indian farms costs almost nothing and in some parts of the country is actually free. India has many farmers and they vote; politicians court them with stunts like free power. Poor accounting systems allow others who steal power to blame the farmers.) That tinkering has put most Indian power utilities into bankruptcy. The problems would be even worse if most of the power sector were not actually owned by the central and state governments in India, which shuffle money around to keep the companies afloat. Unable to get reliable power that is essential to industrial production, most large power users build their own power supplies. By some estimates, one third of the country's power plants are of this "captive" variety—by design, disconnected from the government-controlled grid so they are more reliable and also immune from political meddling.

The rise of weak states on the world stage will affect every aspect of international relations. It could send globalization astray. It will be hard to realize the full benefits of trade, for example, if essential countries are unable to enforce safety standards and trade laws. Fixing these problems may require a new style of international diplomacy that relies less heavily on deals such as treaties with central governments. Instead, specific contracts might be written directly with the segments of society that are best administered and most able to change their behavior. Taming the volcanic growth in Chinese emissions of greenhouse gases, for example, may depend less on whatever deal is crafted with Beijing and more on specific commitments that the West can work out with bosses in the Chinese power sector. How can China be a "responsible stakeholder" in the world economy if it can't actually follow through with commitments it makes in the international arena?

As the pundits gaze at the coming Asian century, they have wondered how Asia's new powers will reshape the world. But the big challenge in the coming Asian century may not be these new countries' burgeoning strength but their weakness.

Democrats voting in Ohio and Texas may well decide the shape of the U.S. presidential election. Regardless of who they choose to run against Sen. John McCain, the all but certain Republican candidate, it is likely that energy issues will figure more prominently in the election than at any time in the last generation. High prices are sapping economic growth, the No. 1 concern across most of the country. Gasoline is now approaching $4 a gallon; natural gas and electricity are also more costly than a few years ago. Global warming has become a bipartisan worry, and solving that problem will require radical new energy technologies as well. All this is good news in the rest of the world, which is hoping that a new regime in Washington will put the United States on a more sustainable energy path.

It may be a vain hope. It is extremely unlikely that Washington will ever supply a coherent energy policy, regardless of who takes the White House in November. That's because serious policies to change energy patterns require a broad effort across many disconnected government agencies and political groups. Higher energy efficiency for buildings and appliances, a major energy use area, requires new federal and state standards. Higher efficiency for vehicles requires federal mandates that always meet stiff opposition in Detroit. A more aggressive program to replace oil with biofuels requires policy decisions that affect farmers and crop patterns-yet another part of Washington's policymaking apparatus, with its own political geometry. New power plants that generate electricity without high emissions of warming gases require reliable subsidies from both federal and state governments, because such plants are much more costly than conventional power sources. Approvals for these new plants require favorable decisions by state regulators, most of whom are not yet focused on the task. Expanded use of nuclear power requires support from still another constellation of administrators and political interests. And so on.

Whenever the public seizes on energy issues, the cabal of Washington energy experts imagines that these problems can be solved with a new comprehensive energy strategy, backed by a grand new political coalition. Security hawks would welcome reduced dependence on volatile oil suppliers, especially in the Persian Gulf. Greens would favor a lighter tread on the planet, and labor would seize on the possibility for "green-collar" jobs in the new energy industries. Farmers would win because they could serve the energy markets. The energy experts dream of a coalition so powerful that it could rewire government and align policy incentives.

This coalition, alas, never lasts long enough to accomplish much. For an energy policy to be effective, it must send credible signals to encourage investment in new equipment not just for the few months needed to craft legislation but for at least two decades-enough time for industry to build and install a new generation of cars, appliances and power plants, and make back the investment. The coalition, though, is politically too diverse to survive the kumbaya moment.

Just two weeks ago the feds canceled "FutureGen," a government-industry project to develop technologies for burning coal without emitting copious greenhouse gases, demonstrating that the government is incapable of making a credible promise to help industry develop these badly needed technologies over the long haul. (The project had severe design flaws, but what matters most is that the federal government was able to pretend to support the venture for as long as it did and then abruptly back off.) Similarly, legislation late last year to increase the fuel economy of U.S. automobiles will have such a small effect on the vehicle fleet that it will barely change the country's dependence on imported oil and will have almost no impact on carbon emissions. Democrats and Republicans alike claim they want to end the country's dependence on foreign oil, but neither party actually does much about it.

The only policies that survive in this political vacuum are those that target narrower political interests with more staying power. Thus America has a highly credible policy to promote corn-based ethanol, because that policy really has nothing to do with energy; it is a chameleon that takes on whatever colors are needed to survive. It is a farm program that masquerades as energy policy; at times, it has been a farm program that masquerades as rural development. As an energy policy it is a very costly and ineffective way to cut dependence on oil. As a global warming policy it is even less cost effective, since large-scale ethanol doesn't help much in cutting CO₂ and other warming gases. Similarly, the United States has a stiff subsidy for renewable electricity-mainly wind and solar plants-because environmentalists are well organized in their support for it. The coal industry periodically gets money for its favored technologies, as in FutureGen, but even that powerful lobby has a hard time getting the government to stay the course.

Europe is in danger of contracting the same affliction. To be sure, most European countries long ago started taxing energy as a convenient way to raise revenues, which fortuitously also makes energy more costly and creates a strong incentive for efficiency. That approach did not originate as an energy policy, but it has emerged as a keystone of Europe's more successful efforts to tame energy consumption. And Europe is in the midst of shifting policymaking from the individual countries to Brussels, which may create a more coherent approach. But despite these advantages, Europe is notable for its inability to be strategic. For example, Brussels is touting a new pipeline called Nabucco that would help Europe cut its dependence on Russia for its natural gas. So far, Brussels is good at talking about the Nabucco dream but can't agree on a route, financing, or even on where to get the gas that would replace Russia's.

The rising powers in Asia are also finding that they, like America, have a hard time developing and applying strategic energy policies. China develops energy policy through its economic planning system, with mixed results. The country doesn't even have an energy ministry, and efforts to create one are being stymied by the bureaucracy and companies that fear they will lose influence. India has four energy ministries and no real central strategy. Like America, India is very good at declaring visions for strategic energy policy but dreadful at putting them into practice. The Japanese public is just as fickle, but the government bureaucracy is entrenched and far-sighted enough to keep its focus long after public interest has waned.

All this means that the underlying forces that are causing high demand for energy (and high prices) and emitting greenhouse gases will be hard to alter. The effort to solve global warming might change this pessimistic iron rule of energy policy, because the environmental community that is the core of the coalition in support of global warming policy is becoming much stronger and has shown staying power. For the moment, however, that is a hypothesis to be proved.

To avoid that and other nightmare scenarios, a group of 12 scientists with extensive nuclear expertise, headed by Stanford physicist Michael M. May, is urging an international push to improve the science of nuclear forensics.

May is a research professor emeritus and former co-director the Center for International Security and Cooperation. He also is the former director of the U.S. nuclear weapons design laboratory in Livermore, Calif. Other members have experience in nuclear intelligence and defense research. One member, Jay Davis, was a United Nations inspector in Iraq.

They say there is an urgent need for more nuclear detectives, armed with science PhDs and instilled with the instincts of an investigator. And those detectives will need training, advanced equipment and stronger ties to intelligence agencies, political leaders and law enforcement.

With the right mobile equipment, nuclear detectives could sift through the debris and the radioactive cloud of an attack in this country or elsewhere and quickly glean crucial information, the scientists argue in a 60-page report to be discussed Feb. 16 at the annual meeting of the American Association for the Advancement of Science (AAAS) in Boston.

The report, Nuclear Forensics: Role, State of the Art, Program Needs, was written by a joint working group of the AAAS and the American Physical Society.

Using radiochemistry techniques and access to proposed international databases that include actual samples of uranium and plutonium from around the world, the nuclear investigators might be able to tell the president—and the world—where the bomb fuel came from, or at least rule out some suspects.

“Nuclear forensics can make a difference,” May said in an interview.

But the U.S. capacity for such investigations has deteriorated since the end of the Cold War, when the capabilities were well supported at the nuclear weapons laboratories. “Presently available trained personnel are highly skilled, but there are not enough of them to deal with an emergency and they are not being replaced,” according to May. “A program to refill the pipeline of trained personnel should be undertaken.”

There’s also a need for development of new equipment, both in the lab and on the street, which could provide a faster analysis during a crisis. The authors also recommend more coordination between scientists and law enforcement; even simple steps such as trading phone numbers could prove crucial. “You really want the top decision makers to know where to get information,” May said.

The remnants of an atomic explosion carry a host of clues, even at the microscopic level, including crystal structures and impurities.

Uranium, for example, varies in isotopic composition and impurities according to where it was mined and how it was processed. Weapons-grade plutonium can be exposed during its production to different neutron fluxes and energies, depending on the particular reactor used. It is also possible to establish the length of time plutonium spent in the reactor.

In some cases, it may be possible for scientists at Lawrence Livermore National Laboratory or Los Alamos National Laboratory to use their experience, intelligence data and software codes to reverse-engineer a nuclear bomb from its debris and learn telltale details of the design of the explosive.

These clues would not be the equivalent of fingerprints or DNA, May said, but would in most cases allow officials to at least rule out or in broad classes of possible sources.

Tracing bomb material to its source may be only the beginning of an investigation, rather than the end, as the authors acknowledge. Discovering that a terrorist explosive was made of uranium stolen from a specific site in Russia, for example, does not identify the terrorists, but it does provide a starting point, especially if there is suspicion that the bomb makers had inside help.

In their report, the scientists recommend that atomic sleuthing be applied also to radioactive materials seized by law enforcement agencies or border guards. Tracking the substances back to their source might prevent or deter attacks, they said. The authors note that the International Atomic Energy Agency’s Illicit Trafficking Database contains 1,080 confirmed events involving illicit trafficking in nuclear and other radioactive materials between 1993 and 2006.

Convincing the nuclear states to share database information about their own uranium and plutonium may be difficult, May said. He suggests that the International Atomic Energy Agency, which has databases of its own, could play an important role.

The authors of the report:

Michael M. May, Chair, Stanford University

Reza Abedin-Zadeh, International Atomic Energy Agency (retired)

Donald A. Barr, Los Alamos National Laboratory (retired)

Albert Carnesale, University of California-Los Angeles

Philip E. Coyle, Center for Defense Information

Jay Davis, Hertz Foundation

Bill Dorland, University of Maryland

Bill Dunlop, Lawrence Livermore National Laboratory

Steve Fetter, University of Maryland

Alexander Glaser, Princeton University

Ian D. Hutcheon, Lawrence Livermore National Laboratory

Francis Slakey, American Physical Society

Benn Tannenbaum, American Association for the Advancement of Science