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Because only a complete fool would condemn his own country to obliteration by sanctioning the use of a nuclear weapon against another country. We've been through the whole M.A.D. escalation phase, people are aware than there is no such thing as a 'limited' nuclear strike without the other side retaliating with everything they have.
The only way to win using a nuclear weapon is to completely wipe out the other side - completely - before they can launch against you. With the invention of the nuclear submarine, it became impossible to do that.
Terrorist (secret) usage of these weapons would not be something to hide behind either, any state even looking as though it might be responsible for an aggressive nuclear act would be toast - and they know it.
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