U.S. Congress Ups Nuclear Arms Spending, Tightens Oversight
Arms Control Today
January/February 2026
By Xiaodon Liang
The Republican-led U.S. Congress approved an annual defense policy bill that green lights $901 billion in discretionary spending and adds more than $2 billion to President Donald Trump’s request for expanded funding for nuclear weapons modernization and strategic missile defense.
Robert Kadlec (C), nominee to be assistant secretary of defense for nuclear deterrence, chemical and biological defense policy and programs, testifies during his Senate Armed Services Committee confirmation hearing in November. Later confirmed, he holds a new position as central policy lead for nuclear weapons matters. (Photo by Tom Williams/CQ-Roll Call, Inc. via Getty Images)Robert Kadlec (C), nominee to be assistant secretary of defense for nuclear deterrence, chemical and biological defense policy and programs, testifies during his Senate Armed Services Committee confirmation hearing in November. Later confirmed, he holds a new position as central policy lead for nuclear weapons matters. (Photo by Tom Williams/CQ-Roll Call, Inc. via Getty Images)
The National Defense Authorization Act for fiscal year 2026, which Trump signed into law Dec. 18, is supplemented by $118 billion in mandatory defense spending approved earlier this year in a budget reconciliation act. It contains various statutory changes relevant to U.S. nuclear forces and their acquisition, while demanding regular briefings on the president’s signature defense program, the “Golden Dome” missile defense system.
Congress will set final budget levels in appropriations bills for fiscal 2026, which remain trapped in negotiations among legislators on a tangle of domestic policy issues.
This year’s defense policy act, which emerged Dec. 7 from negotiations between the House and the Senate, is not as strident as its equivalent from last year in calling for steps to prepare for an arms race. But the legislation reiterates a demand in the fiscal 2025 act for annual briefings on implementation of the recommendations of the 2023 report of the Congressional Commission on the Strategic Posture of the United States, conditioning certain spending on the initiation of these briefings.
The commission report called for planning to upload additional warheads to U.S. intercontinental ballistic missiles (ICBMs), reconvert certain B-52H bombers for a nuclear role, and open missile tubes on Ohio-class ballistic missile submarines, while also acquiring more Long Range Standoff (LRSO) nuclear cruise missiles, B-21 bombers, and Columbia-class ballistic missile submarines, among other proposals to expand the nuclear force. (See ACT, November 2023.)
This year’s authorization act codifies a requirement that the United States indefinitely deploy no fewer than 400 “operationally available” ICBMs, with 150 launch facilities at each of the three current ICBM bases. This goes beyond a restriction that Congress has imposed in previous years barring the use of annually authorized funds to cut the number of ICBMs or reduce their level of readiness.
The act reflects congressional concern regarding the transition from the presently serving Minuteman III ICBM to the future Sentinel ICBM, which has experienced delays and a large cost-estimate increase. (See ACT, September 2024.) Although the Senate’s version of the policy bill had set a target date of 2033 for the Sentinel to reach initial operational capability, the final version of the act drops the deadline. A Nov. 10 article by the defense trade publication Inside Defense also reported that the service is working toward a late 2033 date.
The new ICBM, which the Air Force expects to cost $141 billion in 2020 dollars, will have an annual authorized budget of $5.3 billion, according to the final version of the defense legislation, $1.2 billion more than Trump requested. That total includes funds appropriated earlier this year in a budget reconciliation act. (See ACT, June 2025.)
Given the delay to Sentinel, which the Air Force had indicated would reach initial operational capability by May 2029, the problem of sustaining Minuteman III missiles has garnered increased attention. (See ACT, October 2025.) The act requires the Pentagon to provide an annual report on its strategy for sustaining the Minuteman III until the Sentinel fully replaces the older missile.
The legislation also authorizes an extra $210 million over the president’s budget and sets a 2034 target for the nuclear-capable sea-launched cruise missile to reach initial operational capability, while requiring that the Pentagon and National Nuclear Security Administration (NNSA) provide a “limited number … to meet combatant command requirements” by the end of September 2032.
The Columbia-class ballistic missile submarine program is authorized to spend a total of $11.9 billion across discretionary and reconciliation funding, $710 million more than the president requested.
Although the Senate proposed spending an extra $149 million this year to accelerate the LRSO air-launched nuclear cruise missile program, conference negotiators snubbed the idea. The Senate proposal had included $8 million for advance planning for a conventional variant of the LRSO. Total authorized spending on the missile could reach $1.05 billion in fiscal 2026.
The defense policy act makes several changes to the nuclear weapons enterprise and how it is managed. Statutes governing the Nuclear Weapons Council, a body of five senior Pentagon officials and the administrator of the NNSA, are modified to explicitly entrust the council with the responsibility for “developing options for adjusting the deterrence posture of the United States in response to evolving international security conditions.”
Although the council focused previously on setting priorities for NNSA that reflect Pentagon needs, this year’s statutory changes grant the council more authority to monitor nuclear delivery systems acquisition programs managed by the armed services, as well. The act would grant the council the power to “annually review the plans and budget” of the military departments, whereas previously it only reviewed those of the NNSA.
Last year, Congress modified a senior position within the Pentagon to create a central policy lead for nuclear weapons matters. That role, now titled the assistant secretary of defense for nuclear deterrence, chemical, and biological defense policy and programs, has been further augmented in this year’s defense act by specific instructions to the Pentagon to provide authorities and resources to the new office for overseeing relevant acquisition programs
On Dec. 18, the Senate confirmed Robert Kadlec, the Trump administration’s nominee for the position. Kadlec previously served in the George W. Bush and first Trump administrations as a health and biosecurity expert. As assistant secretary for preparedness and response at the Department of Health and Human Services, Kadlec was an early driver of the Trump administration’s efforts to identify and distribute a vaccine for the COVID-19 pandemic.
Within the NNSA itself, the act creates a rapid capabilities program to “develop new nuclear weapons or modified nuclear weapons that meet military requirements.” According to its new statutory basis, the program will “utilize non-traditional approaches,” adopt “tailored risk-acceptance processes,” “maximize reuse of existing components,” and take other steps to “carry out projects with the goal of achieving first production unit within 5 years of project initiation.”
According to the NNSA’s budget request for fiscal 2026, the agency already has set up rapid capabilities projects under the Stockpile Responsiveness Program “to execute at least two concurrent rapid development activities.”
The act also amends the statutory requirement that NNSA be able to produce 80 plutonium pits per year by specifying that 30 pits be produced at Los Alamos National Laboratories and 50 pits at the future Savannah River Plutonium Processing Facility. NNSA’s plans for pit production are the subject of an environmental impact assessment mandated by the outcome of a recent National Environmental Policy Act lawsuit. (See ACT, November 2024.)
NNSA is now only required to publish a report on the Stockpile Stewardship Management Plan each odd-numbered fiscal year, with Congress eliminating a requirement for shorter updates each even-numbered year.
The Trump administration’s proposal to expand U.S. missile defense capabilities, known as the Golden Dome program, receives wary approval in the defense policy act. The legislation codifies changes to the U.S. policy on missile defense, closely tracking the administration’s Jan. 27 executive order. (See ACT, March 2025.)
The new policy states that the government will “provide for the common defense of the United States and its citizens by deploying and maintaining a next-generation missile defense shield.” The act nullifies previous language that the United States would “rely on nuclear deterrence to address more sophisticated and larger quantity near-peer intercontinental missile threats,” an assurance that attempted to address concerns in Beijing and Moscow that an expanding U.S. missile defense architecture could undermine strategic stability.
Despite this endorsement of the goals of the Golden Dome, the defense committees expressed concern about the program’s viability in demanding that the Pentagon provide an annual report on the system in addition to quarterly briefings
