IF10519

Updated May 19, 2023
Defense Primer: Strategic Nuclear Forces

The Nuclear Triad attack were attempted, and heavy bombers could be
Since the early 1960s, the United States has maintained a dispersed quickly and launched to enhance their
“triad” of strategic nuclear delivery vehicles. These include survivability, and they could be recalled to their bases if a
long-range land-based intercontinental ballistic missiles crisis did not escalate into conflict.
(ICBMs), long-range submarine-launched ballistic missiles
The United States has reaffirmed the value of the nuclear
(SLBMs), and long-range heavy bombers equipped to carry
triad. The Obama Administration noted, in the 2010
nuclear-armed cruise missiles and gravity bombs. The
number of nuclear warheads carried on these delivery Nuclear Posture Review (NPR), that the unique
characteristics of each leg of the triad were important to the
vehicles peaked in the late 1980s, at around 14,000
goal of maintaining strategic stability at reduced numbers of
warheads. It has been declining ever since, both as the
United States complies with limits in U.S.-Russian arms warheads. It pointed out that strategic nuclear submarines
(SSBNs) are the most survivable leg of the triad, that
control agreements and as it has changed requirements after
single-warhead ICBMs contribute to stability and are not
the Cold War. As of February 2018, the United States had
reduced its forces to comply with the New START Treaty, vulnerable to air defenses, and that bombers can be
deployed as a signal in crisis, to strengthen deterrence and
which entered into force in early 2011. Table 1 displays the
provide assurances to allies and partners. It also noted that
U.S. forces that counted under the treaty limits, as of
September 1, 2020. These forces fall below the treaty limits “retaining sufficient force structure in each leg to allow the
ability to hedge effectively by shifting weight from one
of 1,550 deployed warheads on 700 deployed missiles due
Triad leg to another if necessary due to unexpected
to maintenance schedules and operational requirements.
According to a May 2023 Department of State fact sheet, technological problems or operational vulnerabilities.”
the United States had 1,419 warheads deployed on 662 The Trump Administration also reaffirmed the U.S.
missiles and bombers, as of March 1, 2023. commitment to the nuclear triad and to the modernization
programs for each of the components of that force structure.
Table 1. U.S. Strategic Nuclear Forces Under New The 2018 NPR notes that “the triad’s synergy and
START overlapping attributes help ensure the enduring
Total Deployed survivability of our deterrence capabilities against attack
System Launchers Launchers Warheads and our capacity to hold a range of adversary targets at risk
Minuteman throughout a crisis or conflict. Eliminating any leg of the
454 397 397 triad would greatly ease adversary attack planning and
III ICBM
allow an adversary to concentrate resources and attention
Trident
280 230 1,012 on defeating the remaining two legs.” The Biden
(D-5) SLBM
Administration’s 2022 NPR supports continuing
B-52
46 36 36a investments in the modernization programs for all three legs
bombers of the triad.
B-2 bombers 20 12 12a
Total 800 675 1,467 Current Forces and Modernization Plans
Source: U.S. Department of State. New START Treaty Aggregate The United States is recapitalizing each leg of its nuclear
Numbers of Strategic Offensive Arms, December 1, 2020. triad and refurbishing many of the warheads carried by
those systems.
a. The treaty attributes one warhead to each deployed bomber,
although they could carry up to 20 bombs or cruise missiles. ICBMs
Before implementing the New START Treaty, the United
Rationale for the Triad States deployed 450 Minuteman III ICBMs at three Air
Early in the Cold War, the United States developed these Force bases: F.E. Warren AFB in Wyoming, Malmstrom
three types of nuclear delivery vehicles, in large part AFB in Montana, and Minot AFB in North Dakota. Under
because each of the military services wanted to play a role New START, the number has declined to 400 deployed
in the U.S. nuclear arsenal. However, during the 1960s and missiles, although the Air Force has retained all 450 silo
1970s, analysts developed a more reasoned rationale for the launchers. While each Minuteman III missile originally
nuclear triad. They argued that these different basing modes carried three warheads, each now carries a single warhead,
had complementary strengths and weaknesses that would both to reduce U.S. forces to New START levels and to
enhance deterrence and discourage a Soviet first strike. For adopt what is considered a more stabilizing posture.
example, ICBMs were believed to have the accuracy and
prompt responsiveness needed to attack hardened targets The Air Force has completed several programs designed to
such as Soviet command posts and ICBM silos, SLBMs had improve the accuracy and reliability of the Minuteman fleet
the survivability needed to complicate Soviet efforts to and to “support the operational capability ... through 2030.”
launch a disarming first strike and to retaliate if such an The Air Force is also developing a new ICBM, the Ground-
https://crsreports.congress.gov
based Strategic Deterrent (GBSD), which will replace all conventional air-launched cruise missiles (ALCMs). The B-
missiles and ground launch control facilities. It plans to 52 bombers can also deliver a wide range of conventional
acquire 642 missiles to support testing and the deployment arms, and are currently receiving numerous upgrades to
of a force of 400 missiles. The Air Force expects the their communications and electronics systems. The Air
program to reach its initial operational capacity, with 9 Force is also acquiring a new B-21 bomber, for both
missiles on alert, by 2029; it expects to complete the conventional and nuclear missions. It hopes to field
deployment, with 400 missiles on alert, in 2036. The Biden between 80 and 100 of the new bombers, with the first to
Administration has included $3.6 billion for the program in enter service around 2025. The Air Force has included $5
its FY2023 budget request. billion for this bomber in its FY2023 budget request.
The National Nuclear Security Administration (NNSA), a According to unclassified estimates, the United States has
semi-autonomous agency in the Department of Energy, is
around 475 B61 and B83 bombs. Several variants of the
working on a new warhead—known as the W87-1—that
B61 bomb are undergoing a life extension program (LEP),
will deploy on the new GBSD missile. to enhance the bomb’s safety, security, and use control
features. This program will produce a single variant, known
SLBMs
as the B61-12, which will deploy with a new tail kit. This
The United States currently has 14 Trident (Ohio-class) will replace the parachute currently used to slow the
ballistic missile submarines, with 2 in overhaul and 12 in
bomb’s descent and will improve its accuracy. NNSA
the operational fleet. Under New START, each submarine
estimates that the B61 LEP will cost nearly $9 billion, with
carries only 20, rather than the original 24, missiles. Using an additional $1-$2 billion in Air Force funding for the new
treaty counting rules, the 14 submarines count as a total of
tailkit. The new model is expected to begin to enter the
280 deployed and nondeployed launchers, with a maximum
force in 2022. NNSA had planned to retire the B83, the
of 240 deployed launchers and around 1,000 warheads largest bomb remaining in the U.S. arsenal, around 2025,
counting on the 12 operational submarines. The Navy
after the completion of the B61 LEP. The 2018 NPR
operates two bases for these submarines—one in Bangor,
supported plans to retain the B83, but the 2022 NPR also
WA, and one in Kings Bay, GA.
announces retirement of the weapon.
The Navy plans to begin retiring Ohio-class submarines in The Air Force is planning to replace the aging air-launched
2027, with the new Columbia-class submarine expected to cruise missiles carried by B-52 bombers with a new
begin entering the fleet in 2031. The Navy has recently advanced Long Range Standoff (LRSO) cruise missile.
indicated that the fleet of 12 new submarines will cost $139 According to the Air Force, the existing ALCM has been
billion. It has requested $6.3 billion for the Columbia-class through several life extension programs and is beginning to
submarine in its FY2023 budget. show reliability problems. Reports indicate that the Air
Force plans to buy a total of 1,000-1,100 LRSO missiles, at
The Navy purchased over 530 D-5 missiles to support the a cost of around $10.8 billion. It has included $1 billion for
Trident fleet. It has pursued a life-extension program for the the missile in its FY2023 budget request. NNSA is also
missiles, funded at about $1 billion per year, so that they conducting a life-extension program on the W80 warhead to
will remain capable and reliable into the deployment of a provide a warhead for the new LRSO.
new, Columbia-class submarine. It has also initiated a
second life extension program for these missiles, known as
the D5LE II, and has included $173 million in its budget CRS Products
request for FY2023. CRS Report R41219, The New START Treaty: Central Limits and
Key Provisions, by Amy F. Woolf
NNSA is also working to extend the life of the warheads
carried by U.S. SLBMs. It has conducted a life extension CRS Report RL33640, U.S. Strategic Nuclear Forces: Background,
program (LEP) for the W76 warhead, which is carried by Developments, and Issues, by Amy F. Woolf
most Trident missiles, and provided a small number of low-
yield warheads, known as the W76-2, to the Navy in late
2019. NNSA is also altering the W88 warhead, which is
carried by a portion of the fleet, to address concerns with its Other Resources
safety and reliability. In particular, the program will replace DOD. Nuclear Posture Review Report. April 2010.
the aging arming, fuzing, and firing components. It has also
initiated work on the W93 warhead, which will eventually State Department. New START Treaty. April 2010.
deploy on D-5 missiles.
Heavy Bombers
This In Focus was originally authored by Amy F. Woolf,
The Air Force has 20 B-2 bombers, based at Whiteman
Specialist in Nuclear Weapons Policy.
AFB in Missouri. The B-2 bomber can carry both B61 and
B83 nuclear bombs, but it is not equipped to carry cruise
missiles. It can also carry conventional weapons and has Paul K. Kerr, Specialist in Nonproliferation
participated in U.S. military campaigns from Bosnia to Iraq.
IF10519
The Air Force maintains 76 B-52H bombers at two bases,
Barksdale, LA, and Minot, ND. The B-52 bomber, which
first entered service in 1961, is equipped to carry nuclear or
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Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
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Updated May 19, 2023

Defense Primer: Strategic Nuclear Forces

https://crsreports.congress.gov | IF10519 · VERSION 16 · UPDATED

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