NATO Tactical Nuclear Exercises and European Air Base Modernization Efforts
NATO has decided to use a Dutch F-35A as an illustration in a press release for its tactical nuclear weapons exercise. weapons Steadfast Noon.
Two weeks ago, NATO began its annual tactical nuclear exercise in Europe. Dubbed Steadfast Noon, the two-week exercise involves more than 60 aircraft from 13 countries and more than 2000 personnel, according to a NATO press release. That's slightly more than last year's exercise, which involved "up to 60" aircraft.
The exercise is being conducted jointly with Belgium and the Netherlands at Kleine Brogel and Volkel air bases respectively. Flights are being conducted over the North Sea and coastal countries including Belgium, Denmark, Germany, the Netherlands and the UK. NATO says aircraft from eight air bases are involved in the exercise.
The NATO press release did not specify the countries or air bases in question, but an article on Key.Aero previously reported that a NATO spokesman identified the following:
Thirteen countries correspond to the number of participants listed in NATO's press release. Of these, Finland is obviously the most interesting – perhaps surprising – as a formerly neutral country has decided to take part in a nuclear exercise just 18 months after becoming a NATO member.
Airbase modernization
Currently, the US Air Force has approximately 100 B61-3/4 free-fall nuclear bombs stored at six bases in five countries, with one additional base (RAF Lakenheath) currently undergoing upgrades to potentially accommodate future nuclear weapons. The United States is preparing to replace all legacy versions of the B61 bomb deployed in Europe with the new B61-12, which uses the nuclear payload from the older B61-4 bomb. In addition to US heavy bombers, the B61-12 will also be integrated into tactical aircraft operated by the US and its allies, including the F-15E, F-16C/D, F-16MLU, PA-200 Tornado, and F-35A. With the exception of Turkey, all NATO countries that possess US nuclear weapons are acquiring the F-35A to replace their legacy carriers.
The exercise coincides with major upgrades underway at most nuclear bases in Europe. These upgrades include security upgrades to underground storage facilities that house U.S. nuclear weapons, underground cables and nuclear command and control systems, as well as facilities needed for the new nuclear-capable F-35A fighter-bomber.
Recently, several nuclear bases in Europe have built special loading bays for use by U.S. C-17 aircraft that transport nuclear weapons and service equipment. These include Kleine Brogel in Belgium, Ghedi in Italy, and Volkel in the Netherlands. The new sites at Ghedi and Volkel have shelters to conceal the nuclear weapons transports.
This year, in time for Exercise Steadfast Noon, Kleine Brogel Air Base in Belgium underwent a major upgrade to its nuclear weapons maintenance facilities, including the U.S. Air Force’s 701st Munitions Support Squadron (MUNSS), the unit responsible for the physical security and maintenance of the weapons, as well as the delivery of the munitions to the user nation’s air force, if mandated. This includes a new drive-through for nuclear weapons maintenance trucks.
Clear images of the Kleine Brogel air base have disappeared from Google Earth. They were available last year but have since been removed.
Additionally, a large runway for the C-17A nuclear transport aircraft was added near the suspected nuclear weapons storage area, construction of a high-security facility possibly related to nuclear weapons servicing was nearly complete, a new control tower was added, and underground cabling and the alarm and display (AC&D) system were upgraded.
Much of this was previously visible on Google Earth satellite imagery and described by FAS experts last year, but the image has since been removed and all Google Earth images of the base have been blurred to obscure the details. Kleine Brogel Air Base houses approximately 10-15 US B61 nuclear bombs for delivery by Belgian F-16MLU aircraft. A total of 11 Protective Aircraft Shelters (PAS) are equipped with a Weapons Storage and Security System (WS3), which includes a Weapons Vault (WSV) and the associated command, control and communications software needed to release the weapons, which can be lowered beneath the concrete floor. Each WSV can hold up to four bombs, giving a maximum base capacity of 44 weapons.
The WS3 system consists of a weapons storage unit (WSV) and electronic monitoring and control systems. Up to four nuclear charges can be stored in one unit, and when lowered, ballistic protection is provided by a hardened lid and reinforced side walls. The technical documentation for these units states that they can withstand shock wave overpressures of up to 5 psi (000 kg/cm350), which is approximately the same level of protection as modern ICBM silos.
In the Netherlands, personnel at Volkel Air Base have gone to extra lengths to conceal operations by building a wall in front of a parking lot where aviators used to watch and film aircraft. A base spokesman confirmed the purpose of the new wall:
"We believe it is important that personnel can work safely and without interference. Visibility restrictions make it difficult to photograph operational equipment and personnel at the airbase."
For the first time, the Steadfast Noon exercise involved the Royal Netherlands Air Force's newly certified nuclear-capable F-35A fighter-bombers.
Shelters were erected at Volkel Air Base to conceal the loading of weapons and prevent the public from observing the equipment operations.
The German base at Büchel is in the middle of a year-long upgrade that includes a maintenance area for the F-35A at the northern end of the base, a renovated runway, and likely security upgrades to the nuclear weapons storage area with a possible loading bay for U.S. C-17 transport planes, which are used to transport nuclear weapons and limited-life components.
The upgrade of Büchel Air Base in Germany appears to include a new double security perimeter around nuclear storage facilities.
This year, the most significant new development in the Steadfast Noon area was the return of the nuclear mission to RAF Lakenheath, home to the US Air Force’s 48th Fighter Wing, with its F-15E and F-35A fighter-bombers. The base was previously the world’s largest nuclear air base, with 33 underground storage facilities and more than 100 nuclear bombs; but in the mid-2000s, the US Air Force withdrew all weapons and the air base’s nuclear mission was mothballed.
That began to change in 2022, when RAF Lakenheath was quietly added to the list of bases undergoing nuclear upgrades. While the Pentagon tried to remove evidence of the change, other documents made it clear that the nuclear mission was returning. Satellite images of construction at RAF Lakenheath show that approximately 22 of the 33 WS3 aircraft shelters are undergoing nuclear upgrades. The WS3 system allows for the storage of air-delivered bombs directly beneath the aircraft. Locations inside aviation The hangar increases the stealth of the loading process and the survivability of weapons in the event of an air raid or missile attacks and prevents external enemy control by means of reconnaissance during preparations for the use of weapons. The implementation of the WS3 system began in 1988, and by 1995 they had become widespread.
The return of the nuclear mission to RAF Lakenheath appears to include 22 of the original 33 hardened aircraft hangars with underground weapons storage.
It is unclear whether the nuclear weapons will return to RAF Lakenheath or whether the upgrade is intended as a reserve to increase the flexibility and reduce the vulnerability of tactical nuclear weapons in Europe. Following the 2016 coup attempt in Turkey and the Erdogan government’s policies, there has been speculation that the remaining weapons at Incirlik may be withdrawn; interestingly, the number of storage facilities apparently prepared at RAF Lakenheath is roughly equal to the number remaining active at Incirlik.
Weapon upgrade
In addition to upgrading bases and aircraft, the Air Force is in the process of replacing its aging B61-3 and B61-4 tactical nuclear bombs with the new B61-12 guided nuclear bomb. The priority has been to equip B-2 bombers at Whiteman AFB with the new weapon, but preparations are underway to ship the B61-12s to bases in Europe and return the B61-3/4 bombs to the United States for dismantling. The National Nuclear Security Administration (NNSA) recently announced that the B61-12 is technically certified not only for the Air Force fighter-bombers, but also for NATO-certified aircraft (F-16, F-35A, and Tornado).
The B61-12 nuclear bomb is currently technically certified for the B-2 bomber and all U.S. and NATO dual-role fighter aircraft.
It is not yet known whether the first B61-12 bombs have been delivered to Europe. NATO officials will only say that preparations to receive the new bombs are underway. If so, they are unlikely to arrive at all bases at once or necessarily within a short period of time; instead, the new weapons are likely to replace older weapons gradually, depending on the state of modernization of carrier aircraft and air bases.
Loading a B61-12 training bomb (bottom) and an obsolete B61-4 (top) into a WS3 nuclear bomb storage facility, similar to those found at bases in Europe. Each WSV can hold up to four bombs, but typically only one or two.
Current estimates suggest that there are about 100 B61 nuclear bombs deployed across Europe at six bases in five countries. They represent a small fraction of the U.S. nuclear arsenal of about 3700 weapons.
The broader context
Steadfast Noon is an annual exercise, and planning for it began more than a year ago, NATO says. However, the two-week tactical nuclear exercise, involving more than 60 aircraft from 13 countries, took place during a tense foreign policy environment.
Earlier this year, Russia conducted a variety of tactical nuclear exercises and released photos and videos to ensure that the West would notice. And more recently, President Vladimir Putin announced changes to Russia’s nuclear doctrine that are intended to lower the threshold for the potential use of nuclear weapons.
In response, some analysts and institutions in the West have advocated for more nuclear weapons and an expansion of the nuclear sharing mission to include more countries, which they believe is necessary to “strengthen deterrence” against Russia.
The United States has already increased the role and profile of nuclear bombers in support of NATO, and American ballistic missile submarines have resumed port visits in Europe – one SSBN recently surfaced off the coast of Norway. Announcing the start of Steadfast Noon, NATO Secretary General Mark Rutte said that “Steadfast Noon is a significant test of the Alliance’s nuclear deterrence, sending a clear signal to any adversary that NATO will protect and defend all Allies.”
With political rhetoric hardening and signals intensifying, the importance of nuclear weapons is once again on the rise.
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