2007 United States Air Force nuclear weapons incident
Encyclopedia
The 2007 United States Air Force nuclear weapons incident occurred at Minot Air Force Base
and Barksdale Air Force Base
on August 29–30, 2007. Six AGM-129 ACM
cruise missile
s, each loaded with a W80-1 variable yield
nuclear warhead, were reportedly mistakenly loaded on a United States Air Force
(USAF) B-52H heavy bomber
at Minot and transported to Barksdale. The nuclear warheads in the missiles were supposed to have been removed before taking the missiles from their storage bunker. The missiles with the nuclear warheads were not reported missing and remained mounted to the aircraft at both Minot and Barksdale for a period of 36 hours. During this period, the warheads were not protected by the various mandatory security precautions required for nuclear weapons.
The incident was reported to the top levels of the United States (U.S.) military and referred to by observers as a Bent Spear incident, which indicates a nuclear weapon incident that is of significant concern, but does not involve the immediate threat of nuclear war. The USAF has yet to officially classify the incident.
In response to the incident, the U.S. Department of Defense
(DoD) and USAF conducted an investigation, the results of which were released on October 19, 2007. The investigation concluded that nuclear weapons handling standards and procedures had not been followed by numerous USAF personnel involved in the incident. As a result, four USAF commanders were relieved of their commands, numerous other USAF personnel were disciplined and/or decertified to perform certain types of sensitive duties, and further cruise missile transport missions from and nuclear weapons operations at Minot Air Force Base were suspended. In addition, the USAF issued new nuclear weapons handling instructions and procedures.
Separate investigations by the U.S. Defense Science Board and a USAF "Blue Ribbon" panel reported that concerns existed on the procedures and processes for handling nuclear weapons within the U.S. DoD but did not find any failures with the security of U.S. nuclear weapons. Based on this and other incidents, on June 5, 2008, Secretary of the Air Force
Michael Wynne
and Chief of Staff of the Air Force
General T. Michael Moseley
, were asked for their resignations, which were given. In October 2008, in response to recommendations by a review committee, the USAF announced the creation of Air Force Global Strike Command to control all USAF nuclear bombers, missiles, and personnel.
and Barksdale Air Force Base the home of 2nd Bomb Wing, both of which fell under the 8th Air Force
, also based at Barksdale. The 8th was part of Air Combat Command
(ACC) in the USAF. In August 2007 the 5th Bomb Wing was commanded by Colonel
Bruce Emig, the 2nd Bomb Wing by Colonel Robert Wheeler, the 8th Air Force by Lieutenant General
Robert Elder Jr.
, and ACC by General
Ronald Keys
. The 5th Bomb Wing, according to the USAF's statement on the wing's mission, served with its B-52 bombers as part of the USAF's conventional and strategic combat force. The "strategic" portion of the 5th's mission included the ability to deliver nuclear weapons against potential targets worldwide. Thus, Minot Air Force Base stored and maintained a ready arsenal of nuclear bombs, nuclear warheads, and associated delivery systems, including, as of August 2007, the AGM-129 Advanced Cruise Missile.
The AGM-129
was fielded in 1987 as a stealthy cruise missile platform to deliver the W80-1 variable yield nuclear warhead. Although originally designed to equip the B-1 bomber
, it was later decided that the AGM-129 would only be carried by the B-52, mounted on external pylons on the wings, or internally in the bomb bay.
In March 2007, the USAF decided to retire its AGM-129 complement in order to help comply with international arms-control treaties and to replace them with AGM-86
missiles. In order to do so, the USAF began to transport its AGM-129s stored at Minot by B-52s to Barksdale Air Force Base in Louisiana for ultimate disposal. By August 29, 2007 according to the Washington Post, more than 200 AGM-129s had been shipped from Minot to Barksdale in this manner.
, called the breakout crew, entered one of the weapons storage bunkers at Minot to prepare AGM-129 missiles for transport to Barksdale. That day's missile transport, the sixth of 12 planned ferry missions, was to have consisted of 12 AGM-129s, installed with training warheads, with six missiles per pylon and one pylon mounted under each wing of a Barksdale-assigned, 2nd Bomb Wing B-52 aircraft. When the airmen entered the bunker, six actual warheads were still installed on their missiles, as opposed to having been replaced with the dummy training warheads. A later investigation found that the reason for the error was that the formal electronic production system for tracking the missiles "had been subverted in favor of an informal process that did not identify this pylon as prepared for the flight." The airmen assigned to handle the missiles used an outdated source that contained incorrect information on the status of the missiles. The missiles originally planned for movement had been replaced by missiles closer to expiration dates for limited life components (standard procedure). The change in missiles had been reflected on the movement plan but not in the documents used for internal work coordination processes in the bunker.
Although the breakout crew in the weapons storage began to inspect the missiles, an early-arriving transport crew hooked-up the pylons and towed them away without inspecting or ensuring that the missiles had been inspected or cleared for removal. The munitions control center failed to verify that the pylon had received proper clearance and inspection and approved the pylon for loading on the B-52 aircraft at 09:25. After taking eight hours to attach the pylons to the aircraft, the aircraft with the missiles loaded then remained parked overnight at Minot for 15 hours without special guard as required for nuclear weapons.
On the morning of August 30, one of the transport aircraft's flight officer
s, a Barksdale-assigned B-52 instructor radar navigator (name unknown), closely inspected the six missiles on the right wing only, which were all properly uploaded with training warheads, before signing the manifest listing the cargo as a dozen unarmed AGM-129 missiles. The B-52 command pilot did not do a final verification check before preparing to depart Minot.
The B-52 departed Minot at 08:40 and landed at Barksdale at 11:23 (local times) on August 30. The aircraft remained parked and without special guard until 20:30, when a munitions team arrived to remove the missiles. After a member of the munitions crew noticed something unusual about some of the missiles, at 22:00 a "skeptical" supervisor determined that nuclear warheads were present and ordered them secured and the incident reported, 36 hours after the missiles were removed from the bunker at Minot.
The incident was reported to the National Military Command Center
as a Bent Spear incident, which indicates a nuclear weapon incident that is of significant concern, but does not involve the immediate threat of nuclear war (Pinnacle - Nucflash) or the accidental detonation of or severe damage to a nuclear weapon (Pinnacle - Broken Arrow). Chief of Staff of the United States Air Force
, General T. Michael Moseley
quickly called the U.S. Secretary of Defense
, Robert Gates
, on August 31 to inform him about the incident. Gates requested daily updates regarding the investigation and informed President Bush
about the incident. The USAF has yet to officially designate what type of incident actually occurred, Bent Spear or otherwise. The incident was the first of its kind in 40 years in the United States and was later described by the media as "one of the worst breaches in U.S. nuclear weapons security in decades".
newspaper, which published a small article about the incident on September 5, 2007.
In response, a September 5 news briefing in the Pentagon
by Press Secretary Geoff Morrell stated that at no time was the public in any danger and that military personnel had custody of the weapons at all times. The USAF announced that within days of the incident, the USAF relieved the Minot munitions squadron
commander and eventually disciplined 25 airmen. USAF Major General
Doug Raaberg was assigned by General Keys to lead an investigation into the incident. The USAF inventory of nuclear warheads was checked to ensure that all warheads were accounted for. In addition, the DoD announced that a Pentagon-appointed scientific advisory panel, called the Defense Science Board, would study the mishap as part of a larger review of procedures for handling nuclear weapons. On September 28, the USAF announced that General Keys was retiring and would be replaced as ACC commander by General John Corley, effective October 2.
On October 19, 2007, U.S. Secretary of the Air Force
Michael Wynne
and USAF Major General Richard Newton, deputy chief of staff for operations, plans, and requirements, announced the investigation report findings, stating that, "there has been an erosion of adherence to weapons-handling standards at Minot Air Force Base and at Barksdale Air Force Base" and that "... a limited number of airmen at both locations failed to follow procedures." Colonel Emig, the commander of the 5th Bomb Wing, Colonel Cynthia Lundell, the commander of the 5th Maintenance Group
at Minot, and Colonel Todd Westhauser, the commander of Barksdale's 2nd Operations Group, and four senior non-commissioned officers from the 5th Munitions Squadron "received administrative action" and were relieved of their commands or positions and reassigned. All of the 5th Bomb Wing personnel were stripped of their certifications to handle nuclear and other sensitive weaponry and to conduct "specific missions". Sixty-five airmen of varying ranks lost their personnel reliability program
certifications. Tactical ferry operations were suspended. The inspector general
offices of all USAF major commands
that handle nuclear weapons were directed to conduct immediate "Limited Nuclear Surety Inspections (LNSIs) at every nuclear-capable unit" with oversight provided by the Defense Threat Reduction Agency
.
The new ACC commander, General Corley, referred the matter to USAF Lieutenant General Norman Seip, commander of the 12th Air Force
, as a court-martial
convening authority to determine if additional charges or actions would be taken against any of the personnel involved in the incident. Seip later closed the investigation without recommending criminal charges against anyone involved.
Retired USAF Chief of Staff General Larry Welch was asked by Gates, who had reportedly raised concerns with USAF officials that the original investigation may have unfairly limited blame to midlevel officers, to lead the Defense Science Board advisory panel that would study the mishap as part of a larger review of procedures and policies for handling nuclear weapons. In addition, the USAF chartered a "Blue Ribbon Review" chaired by USAF Major General Polly Peyer and consisting of 30 members to "make recommendations as to how we can improve the Air Force's capability to safely and securely perform our nuclear weapons responsibility". Furthermore, the U.S. Congress
requested that the DoD and U.S. Department of Energy
conduct a bottom-up review of nuclear procedures.
On October 24, 2007, Secretary of the Air Force Wynne told the House Armed Services Committee
that he believed that the 5th Bomb Wing could be recertified and could resume ferrying the AGM-129 cruise missiles to Barksdale for retirement. He did not provide a timeline for that recertification process. On November 1, 2007 Colonel Joel Westa took command of the 5th Bomb Wing. That same day, General Keys retired from the Air Force.
Personnel from Barksdale's 2nd Bomb Wing temporarily took over maintenance duties of Minot's nuclear stockpile until the 5th Bomb Wing could be recertified. A nuclear surety inspection (NSI), required for recertification, originally scheduled for the 5th Bomb Wing for January 23, 2008 was postponed after the wing failed an initial NSI that took place on December 16, 2007. Another initial NSI was completed on March 29 and Corley recertified the wing on March 31, 2008. A full NSI was scheduled for May 2008. The wing needed to regain its certification in order to hold the full NSI, said Major Elizabeth Ortiz, a Minot spokeswoman. Units handling nuclear weapons must pass NSIs every 18 months in order to retain their certifications.
The USAF issued a new policy directive regarding the handling of nuclear weapons and delivery systems, which prohibits the storing of nuclear armed and nonnuclear armed weapons in the same storage facility. The directive further instructs that all nonnuclear munitions and missiles must be labeled with placards clearly stating that they are not armed with nuclear warheads. Wing commanders are now charged with approving any movement of nuclear weapons from weapons storage areas and must appoint a single individual as a munitions accountability system officer and weapons custodian. All units that handle nuclear weapons must develop a coordinated visual inspection checklist. The policy further directs that airmen charged with handling or maintaining nuclear weapons cannot be on duty for longer than 12 hours, unless during an emergency, when their duty period can be extended to a maximum of 16 hours. The USAF has since instituted a program of surprise inspections at nuclear-armed bases.
Welch and Peyer briefed the results of their reviews before the U.S. Senate Committee on Armed Services
on February 12, 2008. In addition to Welch and Peyer, Lieutenant General Daniel Darnell, USAF deputy chief of staff for air, space and information operations and Major General Raaberg testified and answered questions from the senate committee's members. During the hearing, Welch stated that, "The military units responsible for handling the bombs are not properly inspected and, as a result, may not be ready to perform their missions." He added, "If you look at all the areas and all the ways that we have to store and handle these weapons in order to perform the mission, it just requires, we believe, more resources and more attention than they're getting." Welch's report concluded that the combining of DoD nuclear forces with nonnuclear organizations has led to "markedly reduced levels of leadership whose daily focus is the nuclear enterprise and a general devaluation of the nuclear mission and those who perform the mission." Nevertheless, neither Welch's nor Peyer's reports found any failures with the security of U.S. nuclear weapons.
Responding to Welch's and Peyer's reports, USAF officials stated that they were already implementing many of the recommendations contained in the reports but added that existing regulations governing nuclear procedures were satisfactory. During his testimony before the senate committee, Darnell stated, "The Air Force portion of the nuclear deterrent is sound, and we will take every measure necessary to provide safe, secure, reliable nuclear surety to the American public."
about the 5th's failure in the inspection, "It makes you wonder what’s going on elsewhere, like the nuclear weapons stationed at bases overseas, and at Barksdale Air Force Base and Whiteman Air Force Base
." Minot passed the follow-up inspection on August 15, 2008.
On June 5, 2008, Robert Gates announced the results of an investigation into the misshipment of four MK-12 forward-section reentry vehicle assemblies to Taiwan
. The investigation, conducted by Admiral Kirkland H. Donald
, director of US Naval
Propulsion, found that the Taiwan missile incident was, in Gates' words, "A degradation of the authority, standards of excellence and technical competence within the nation's ICBM force. Similar to the bomber-specific August 2007 Minot-Barksdale nuclear weapons transfer incident, this incident took place within the larger environment of declining Air Force nuclear mission focus and performance" and that "the investigation identified commonalities between the August 2007 Minot incident and this [the Taiwan] event." In his investigation report, Donald stated that the issues identified by his investigation were, "Indicative of an overall decline in Air Force nuclear weapons stewardship, a problem that has been identified but not effectively addressed for over a decade. Both the Minot-Barksdale nuclear weapons transfer incident and the Taiwan misshipment, while different in specifics, have a common origin: the gradual erosion of nuclear standards and a lack of effective oversight by Air Force leadership"
As a result of the investigation, Gates announced that, "A substantial number of Air Force general officers and colonels have been identified as potentially subject to disciplinary measures, ranging from removal from command to letters of reprimand," and that he had accepted the resignations of USAF Secretary Michael Wynne and USAF Chief of Staff Michael Moseley. Gates added that he had asked James R. Schlesinger
to lead a senior-level task force to recommend improvements in the stewardship and operation of nuclear weapons, delivery vehicles and sensitive components by the US DoD. Members of the task force came from the Defense Policy Board and the Defense Science Board.
On September 13, 2008, Gates announced Schlesinger's task force's recommendations by calling on the USAF to place all nuclear weapons under a single command. The task force suggested that the new command be called Air Force Strategic Command, which would replace the current Air Force Space Command
, and make it accountable for the nuclear mission. It also called for all USAF bombers to be placed under a single command. In addition, the task force recommended that the USAF move an additional 1,500 to 2,000 airmen into nuclear-related jobs. Gates announced that acting Air Force Secretary Michael B. Donley
and Chief of Staff General Norton A. Schwartz
were "reviewing the recommendations" for disciplinary action against USAF officers previously involved in the nuclear mission. The task force found an, "an unambiguous, dramatic and unacceptable decline in the Air Force’s commitment to perform the nuclear mission and, until very recently, little has been done to reverse it."
On September 25, 2008, the United States Department of Defense
announced that six Air Force and two Army generals and nine colonels had received letters of reprimand, admonishment, or counseling. Two Air Force major generals were asked to stay in their current position; the others either retired, planned to retire, or were removed from their position. Air Force Chief of Staff Norton Schwartz met with each officer personally before issuing the letters. He noted they committed no offense under the UCMJ, but "did not do enough to carry out their leadership responsibilities for nuclear oversight. "For that they must be held accountable." The Air Force stated that the discipline was in response to the mistaken shipment of nuclear fuze
s to Taiwan, not for the Minot nuclear weapons incident.
One of those reprimanded was Lieutenant General Kevin Sullivan, Air Force deputy chief of staff for logistics, installations and mission support at the Pentagon. Sullivan retired at the rank of Major General in November 2008. Lieutenant General Michael Hamel, commander of the Space and Missile Systems Center
, received a letter of admonishment and also retired in November 2008. Major General Roger Burg, commander of the Twentieth Air Force
, Major General Kathleen Close, commander of the Ogden Air Logistics Center
, Brigadier General Francis Bruno, Director of Logistics, Air Force Material Command, and Brigadier General Arthur Cameron III, Air Force director of resource integration, also received letters of admonishment.
In November 2008, the 341st Missile Wing
at Malmstrom Air Force Base
failed its nuclear surety inspection. The 90th Missile Wing at F. E. Warren Air Force Base, failed its nuclear surety inspection one month later. In November 2009 at Kirtland Air Force Base
the 377th Air Base Wing
, commanded by Colonel Michael S. Duvall, and 498th Nuclear Systems Wing, commanded by Colonel Richard M. Stuckey, failed their nuclear surety inspections.
On October 30, 2009 Westa was relieved as commander of the 5th Bomb Wing by Major General Floyd L. Carpenter, commander of 8th Air Force. Carpenter stated that Westa was relived due to his "inability to foster a culture of excellence, a lack of focus on the strategic mission … and substandard performance during several nuclear surety inspections, including the newly activated 69th Bomb Squadron."
On January 8, 2009 Schlesinger's task force released its report regarding the overall DoD's management of the country's nuclear weapons mission. The report criticized the DoD for a lack of focus and oversight on its nuclear weapons programs and recommended that the DoD create a new assistant secretary position to oversee its nuclear management. The task force found that within the DoD only the United States Navy
was effectively managing its nuclear arsenal. The panel stated that it found, "a distressing degree of inattention to the role of nuclear weapons in deterrence among many senior DoD military and civilian leaders."
On October 24, 2008 new USAF Secretary Michael Donley announced the creation of Air Force Global Strike Command. The new command became operational on August 7, 2009. The USAF's intercontinental nuclear missile force was moved from Air Force Space Command to the new command. Barksdale was selected as the location of the new command's headquarters. The new major command is led by a three-star general and controls all USAF nuclear-capable bombers, missiles and personnel.
Minot Air Force Base
Minot Air Force Base is a U.S. Air Force installation in Ward County, North Dakota, north of the city of Minot. In the 2010 census, the base was counted as a CDP with a total population of 5,521....
and Barksdale Air Force Base
Barksdale Air Force Base
Barksdale Air Force Base is a United States Air Force base located approximately east-southeast of Bossier City, Louisiana.The host unit at Barksdale is the 2d Bomb Wing , the oldest Bomb Wing in the Air Force. It is assigned to the Air Force Global Strike Command's Eighth Air Force...
on August 29–30, 2007. Six AGM-129 ACM
AGM-129 ACM
* Missile of the same class** Ra'ad ** TAURUS KEPD 350 ** Storm Shadow -Notes:# Alleged violations of the Antideficiency Act in the Air Force’s procurement of advanced cruise missiles.FILE B-255831, Office of the General Counsel, United States General Accounting Office.# Union Calls for Strike by...
cruise missile
Cruise missile
A cruise missile is a guided missile that carries an explosive payload and is propelled, usually by a jet engine, towards a land-based or sea-based target. Cruise missiles are designed to deliver a large warhead over long distances with high accuracy...
s, each loaded with a W80-1 variable yield
Variable yield
Variable yield — or dial-a-yield — is an option available on most modern nuclear weapons. It allows the operator to specify a weapon's yield, or explosive power, allowing a single design to be used in different situations...
nuclear warhead, were reportedly mistakenly loaded on a United States Air Force
United States Air Force
The United States Air Force is the aerial warfare service branch of the United States Armed Forces and one of the American uniformed services. Initially part of the United States Army, the USAF was formed as a separate branch of the military on September 18, 1947 under the National Security Act of...
(USAF) B-52H heavy bomber
Heavy bomber
A heavy bomber is a bomber aircraft of the largest size and load carrying capacity, and usually the longest range.In New START, the term "heavy bomber" is used for two types of bombers:*one with a range greater than 8,000 kilometers...
at Minot and transported to Barksdale. The nuclear warheads in the missiles were supposed to have been removed before taking the missiles from their storage bunker. The missiles with the nuclear warheads were not reported missing and remained mounted to the aircraft at both Minot and Barksdale for a period of 36 hours. During this period, the warheads were not protected by the various mandatory security precautions required for nuclear weapons.
The incident was reported to the top levels of the United States (U.S.) military and referred to by observers as a Bent Spear incident, which indicates a nuclear weapon incident that is of significant concern, but does not involve the immediate threat of nuclear war. The USAF has yet to officially classify the incident.
In response to the incident, the U.S. Department of Defense
United States Department of Defense
The United States Department of Defense is the U.S...
(DoD) and USAF conducted an investigation, the results of which were released on October 19, 2007. The investigation concluded that nuclear weapons handling standards and procedures had not been followed by numerous USAF personnel involved in the incident. As a result, four USAF commanders were relieved of their commands, numerous other USAF personnel were disciplined and/or decertified to perform certain types of sensitive duties, and further cruise missile transport missions from and nuclear weapons operations at Minot Air Force Base were suspended. In addition, the USAF issued new nuclear weapons handling instructions and procedures.
Separate investigations by the U.S. Defense Science Board and a USAF "Blue Ribbon" panel reported that concerns existed on the procedures and processes for handling nuclear weapons within the U.S. DoD but did not find any failures with the security of U.S. nuclear weapons. Based on this and other incidents, on June 5, 2008, Secretary of the Air Force
United States Secretary of the Air Force
The Secretary of the Air Force is the Head of the Department of the Air Force, a component organization within the Department of Defense of the United States of America. The Secretary of the Air Force is appointed from civilian life by the President, by and with the advice and consent of the Senate...
Michael Wynne
Michael Wynne
Michael W. Wynne is an American business executive and was the 21st United States Secretary of the Air Force. Secretary of Defense Robert Gates asked for and received his resignation Michael W. Wynne (born September 4, 1944) is an American business executive and was the 21st United States...
and Chief of Staff of the Air Force
Chief of Staff of the United States Air Force
The Chief of Staff of the Air Force is a statutory office held by a four-star general in the United States Air Force, and is the most senior uniformed officer assigned to serve in the Department of the Air Force, and as such is the principal military advisor and a deputy to the Secretary of the...
General T. Michael Moseley
T. Michael Moseley
Teed Michael Moseley, , is a retired United States Air Force General who served as the 18th Chief of Staff of the United States Air Force...
, were asked for their resignations, which were given. In October 2008, in response to recommendations by a review committee, the USAF announced the creation of Air Force Global Strike Command to control all USAF nuclear bombers, missiles, and personnel.
Background
As of August 2007, Minot Air Force Base was the home of the 5th Bomb Wing5th Bomb Wing
The 5th Bomb Wing is a United States Air Force unit assigned to Air Force Global Strike Command's Eighth Air Force. It is stationed at Minot Air Force Base, North Dakota. The wing is also the host unit at Minot...
and Barksdale Air Force Base the home of 2nd Bomb Wing, both of which fell under the 8th Air Force
Eighth Air Force
The Eighth Air Force is a numbered air force of the United States Air Force Global Strike Command . It is headquartered at Barksdale Air Force Base, Louisiana....
, also based at Barksdale. The 8th was part of Air Combat Command
Air Combat Command
Air Combat Command is a major command of the United States Air Force. ACC is one of ten major commands , reporting to Headquarters, United States Air Force ....
(ACC) in the USAF. In August 2007 the 5th Bomb Wing was commanded by Colonel
Colonel
Colonel , abbreviated Col or COL, is a military rank of a senior commissioned officer. It or a corresponding rank exists in most armies and in many air forces; the naval equivalent rank is generally "Captain". It is also used in some police forces and other paramilitary rank structures...
Bruce Emig, the 2nd Bomb Wing by Colonel Robert Wheeler, the 8th Air Force by Lieutenant General
Lieutenant General
Lieutenant General is a military rank used in many countries. The rank traces its origins to the Middle Ages where the title of Lieutenant General was held by the second in command on the battlefield, who was normally subordinate to a Captain General....
Robert Elder Jr.
Robert J. Elder, Jr.
-External links:**...
, and ACC by General
General (United States)
In the United States Army, United States Air Force, and United States Marine Corps, general is a four-star general officer rank, with the pay grade of O-10. General ranks above lieutenant general and below General of the Army or General of the Air Force; the Marine Corps does not have an...
Ronald Keys
Ronald Keys
General Ronald Ellis Keys was Commander, Air Combat Command, with headquarters at Langley Air Force Base, Virginia, and Air Component Commander for U.S. Joint Forces Command and U.S...
. The 5th Bomb Wing, according to the USAF's statement on the wing's mission, served with its B-52 bombers as part of the USAF's conventional and strategic combat force. The "strategic" portion of the 5th's mission included the ability to deliver nuclear weapons against potential targets worldwide. Thus, Minot Air Force Base stored and maintained a ready arsenal of nuclear bombs, nuclear warheads, and associated delivery systems, including, as of August 2007, the AGM-129 Advanced Cruise Missile.
AGM-129 ACM
* Missile of the same class** Ra'ad ** TAURUS KEPD 350 ** Storm Shadow -Notes:# Alleged violations of the Antideficiency Act in the Air Force’s procurement of advanced cruise missiles.FILE B-255831, Office of the General Counsel, United States General Accounting Office.# Union Calls for Strike by...
was fielded in 1987 as a stealthy cruise missile platform to deliver the W80-1 variable yield nuclear warhead. Although originally designed to equip the B-1 bomber
B-1 Lancer
The Rockwell B-1 LancerThe name "Lancer" is only applied to the B-1B version, after the program was revived. is a four-engine variable-sweep wing strategic bomber used by the United States Air Force...
, it was later decided that the AGM-129 would only be carried by the B-52, mounted on external pylons on the wings, or internally in the bomb bay.
In March 2007, the USAF decided to retire its AGM-129 complement in order to help comply with international arms-control treaties and to replace them with AGM-86
AGM-86 ALCM
The Boeing AGM-86 ALCM is a U.S. subsonic air-launched cruise missile built by Boeing Company and operated by the United States Air Force. The missiles were developed to increase the effectiveness and survivability of Boeing B-52H Stratofortress bombers...
missiles. In order to do so, the USAF began to transport its AGM-129s stored at Minot by B-52s to Barksdale Air Force Base in Louisiana for ultimate disposal. By August 29, 2007 according to the Washington Post, more than 200 AGM-129s had been shipped from Minot to Barksdale in this manner.
Incident
Between 08:00 and 09:00 (local time) on August 29, 2007, a group of USAF airmenAirman
An airman is a member of the air component of a nation's armed service. In the United States Air Force and the Royal Air Force , it can also refer to a specific enlisted rank...
, called the breakout crew, entered one of the weapons storage bunkers at Minot to prepare AGM-129 missiles for transport to Barksdale. That day's missile transport, the sixth of 12 planned ferry missions, was to have consisted of 12 AGM-129s, installed with training warheads, with six missiles per pylon and one pylon mounted under each wing of a Barksdale-assigned, 2nd Bomb Wing B-52 aircraft. When the airmen entered the bunker, six actual warheads were still installed on their missiles, as opposed to having been replaced with the dummy training warheads. A later investigation found that the reason for the error was that the formal electronic production system for tracking the missiles "had been subverted in favor of an informal process that did not identify this pylon as prepared for the flight." The airmen assigned to handle the missiles used an outdated source that contained incorrect information on the status of the missiles. The missiles originally planned for movement had been replaced by missiles closer to expiration dates for limited life components (standard procedure). The change in missiles had been reflected on the movement plan but not in the documents used for internal work coordination processes in the bunker.
On the morning of August 30, one of the transport aircraft's flight officer
Flight officer
The title flight officer was a military rank used by the United States Armed Forces where it was an air force warrant officer rank. It was also an air force rank in several Commonwealth nations where it was used for female officers and was equivalent to the rank of flight lieutenant...
s, a Barksdale-assigned B-52 instructor radar navigator (name unknown), closely inspected the six missiles on the right wing only, which were all properly uploaded with training warheads, before signing the manifest listing the cargo as a dozen unarmed AGM-129 missiles. The B-52 command pilot did not do a final verification check before preparing to depart Minot.
The B-52 departed Minot at 08:40 and landed at Barksdale at 11:23 (local times) on August 30. The aircraft remained parked and without special guard until 20:30, when a munitions team arrived to remove the missiles. After a member of the munitions crew noticed something unusual about some of the missiles, at 22:00 a "skeptical" supervisor determined that nuclear warheads were present and ordered them secured and the incident reported, 36 hours after the missiles were removed from the bunker at Minot.
National Military Command Center
Located in the Pentagon, the National Military Command Center houses the logistical and communications center for the National Command Authority of the United States of America. The facility, which is composed of several war rooms, is the principal command and control center of the Department of...
as a Bent Spear incident, which indicates a nuclear weapon incident that is of significant concern, but does not involve the immediate threat of nuclear war (Pinnacle - Nucflash) or the accidental detonation of or severe damage to a nuclear weapon (Pinnacle - Broken Arrow). Chief of Staff of the United States Air Force
Chief of Staff of the United States Air Force
The Chief of Staff of the Air Force is a statutory office held by a four-star general in the United States Air Force, and is the most senior uniformed officer assigned to serve in the Department of the Air Force, and as such is the principal military advisor and a deputy to the Secretary of the...
, General T. Michael Moseley
T. Michael Moseley
Teed Michael Moseley, , is a retired United States Air Force General who served as the 18th Chief of Staff of the United States Air Force...
quickly called the U.S. Secretary of Defense
United States Secretary of Defense
The Secretary of Defense is the head and chief executive officer of the Department of Defense of the United States of America. This position corresponds to what is generally known as a Defense Minister in other countries...
, Robert Gates
Robert Gates
Dr. Robert Michael Gates is a retired civil servant and university president who served as the 22nd United States Secretary of Defense from 2006 to 2011. Prior to this, Gates served for 26 years in the Central Intelligence Agency and the National Security Council, and under President George H. W....
, on August 31 to inform him about the incident. Gates requested daily updates regarding the investigation and informed President Bush
George W. Bush
George Walker Bush is an American politician who served as the 43rd President of the United States, from 2001 to 2009. Before that, he was the 46th Governor of Texas, having served from 1995 to 2000....
about the incident. The USAF has yet to officially designate what type of incident actually occurred, Bent Spear or otherwise. The incident was the first of its kind in 40 years in the United States and was later described by the media as "one of the worst breaches in U.S. nuclear weapons security in decades".
Response by the U.S. government
The USAF and DoD at first decided to conceal the incident, in part because of the USAF policy not to comment on the storage or movement of nuclear weapons and an apparent belief that the incident would not generate much public concern; the DoD incident report contained the statement, "No press interest anticipated." Details of the incident were then leaked by unknown DoD officials to the Military TimesArmy Times Publishing Company
Gannett Government Media, formerly the Army Times Publishing Company, is a United States company which publishes newspapers, magazines, Web sites, and other publications about the U.S. and other militaries. Founded in 1940, it was purchased by the Gannett Company in August 1997.It publishes four...
newspaper, which published a small article about the incident on September 5, 2007.
In response, a September 5 news briefing in the Pentagon
The Pentagon
The Pentagon is the headquarters of the United States Department of Defense, located in Arlington County, Virginia. As a symbol of the U.S. military, "the Pentagon" is often used metonymically to refer to the Department of Defense rather than the building itself.Designed by the American architect...
by Press Secretary Geoff Morrell stated that at no time was the public in any danger and that military personnel had custody of the weapons at all times. The USAF announced that within days of the incident, the USAF relieved the Minot munitions squadron
AMMO (U.S. Air Force)
The Munitions Systems Specialist career field , commonly referred to as AMMO, is the munitions and weapons branch of the U.S. Air Force.-Career Field Description:...
commander and eventually disciplined 25 airmen. USAF Major General
Major General
Major general or major-general is a military rank used in many countries. It is derived from the older rank of sergeant major general. A major general is a high-ranking officer, normally subordinate to the rank of lieutenant general and senior to the ranks of brigadier and brigadier general...
Doug Raaberg was assigned by General Keys to lead an investigation into the incident. The USAF inventory of nuclear warheads was checked to ensure that all warheads were accounted for. In addition, the DoD announced that a Pentagon-appointed scientific advisory panel, called the Defense Science Board, would study the mishap as part of a larger review of procedures for handling nuclear weapons. On September 28, the USAF announced that General Keys was retiring and would be replaced as ACC commander by General John Corley, effective October 2.
United States Secretary of the Air Force
The Secretary of the Air Force is the Head of the Department of the Air Force, a component organization within the Department of Defense of the United States of America. The Secretary of the Air Force is appointed from civilian life by the President, by and with the advice and consent of the Senate...
Michael Wynne
Michael Wynne
Michael W. Wynne is an American business executive and was the 21st United States Secretary of the Air Force. Secretary of Defense Robert Gates asked for and received his resignation Michael W. Wynne (born September 4, 1944) is an American business executive and was the 21st United States...
and USAF Major General Richard Newton, deputy chief of staff for operations, plans, and requirements, announced the investigation report findings, stating that, "there has been an erosion of adherence to weapons-handling standards at Minot Air Force Base and at Barksdale Air Force Base" and that "... a limited number of airmen at both locations failed to follow procedures." Colonel Emig, the commander of the 5th Bomb Wing, Colonel Cynthia Lundell, the commander of the 5th Maintenance Group
Group (air force)
A group is a military aviation unit, a component of military organization and a military formation. Usage of the terms group and wing differ from one country to another, as well as different branches of a defence force, in some cases...
at Minot, and Colonel Todd Westhauser, the commander of Barksdale's 2nd Operations Group, and four senior non-commissioned officers from the 5th Munitions Squadron "received administrative action" and were relieved of their commands or positions and reassigned. All of the 5th Bomb Wing personnel were stripped of their certifications to handle nuclear and other sensitive weaponry and to conduct "specific missions". Sixty-five airmen of varying ranks lost their personnel reliability program
Personnel Reliability Program
Personnel Reliability Program is a United States Department of Defense psychological evaluation program, designed to permit only the most trustworthy individuals to have access to nuclear weapons, chemcial weapons, biological weapons....
certifications. Tactical ferry operations were suspended. The inspector general
Inspector General
An Inspector General is an investigative official in a civil or military organization. The plural of the term is Inspectors General.-Bangladesh:...
offices of all USAF major commands
Major Command
Major Command or Major Commands are large formations of the United States Armed Forces. Historically, a MAJCOM is the highest level of command.There are two types of Major Commands in the United States military:...
that handle nuclear weapons were directed to conduct immediate "Limited Nuclear Surety Inspections (LNSIs) at every nuclear-capable unit" with oversight provided by the Defense Threat Reduction Agency
Defense Threat Reduction Agency
The Defense Threat Reduction Agency is an agency within the United States Department of Defense and is the official Combat Support Agency for countering weapons of mass destruction . DTRA's main functions are threat reduction, threat control, combat support, and technology development...
.
The new ACC commander, General Corley, referred the matter to USAF Lieutenant General Norman Seip, commander of the 12th Air Force
Air Forces Southern
The Twelfth Air Force is a numbered air force of the United States Air Force Air Combat Command . It is headquartered at Davis-Monthan Air Force Base, Arizona....
, as a court-martial
Court-martial
A court-martial is a military court. A court-martial is empowered to determine the guilt of members of the armed forces subject to military law, and, if the defendant is found guilty, to decide upon punishment.Most militaries maintain a court-martial system to try cases in which a breach of...
convening authority to determine if additional charges or actions would be taken against any of the personnel involved in the incident. Seip later closed the investigation without recommending criminal charges against anyone involved.
Retired USAF Chief of Staff General Larry Welch was asked by Gates, who had reportedly raised concerns with USAF officials that the original investigation may have unfairly limited blame to midlevel officers, to lead the Defense Science Board advisory panel that would study the mishap as part of a larger review of procedures and policies for handling nuclear weapons. In addition, the USAF chartered a "Blue Ribbon Review" chaired by USAF Major General Polly Peyer and consisting of 30 members to "make recommendations as to how we can improve the Air Force's capability to safely and securely perform our nuclear weapons responsibility". Furthermore, the U.S. Congress
United States Congress
The United States Congress is the bicameral legislature of the federal government of the United States, consisting of the Senate and the House of Representatives. The Congress meets in the United States Capitol in Washington, D.C....
requested that the DoD and U.S. Department of Energy
United States Department of Energy
The United States Department of Energy is a Cabinet-level department of the United States government concerned with the United States' policies regarding energy and safety in handling nuclear material...
conduct a bottom-up review of nuclear procedures.
USAF actions
United States House Committee on Armed Services
thumb|United States House Committee on Armed Services emblemThe U.S. House Committee on Armed Services, commonly known as the House Armed Services Committee, is a standing committee of the United States House of Representatives...
that he believed that the 5th Bomb Wing could be recertified and could resume ferrying the AGM-129 cruise missiles to Barksdale for retirement. He did not provide a timeline for that recertification process. On November 1, 2007 Colonel Joel Westa took command of the 5th Bomb Wing. That same day, General Keys retired from the Air Force.
Personnel from Barksdale's 2nd Bomb Wing temporarily took over maintenance duties of Minot's nuclear stockpile until the 5th Bomb Wing could be recertified. A nuclear surety inspection (NSI), required for recertification, originally scheduled for the 5th Bomb Wing for January 23, 2008 was postponed after the wing failed an initial NSI that took place on December 16, 2007. Another initial NSI was completed on March 29 and Corley recertified the wing on March 31, 2008. A full NSI was scheduled for May 2008. The wing needed to regain its certification in order to hold the full NSI, said Major Elizabeth Ortiz, a Minot spokeswoman. Units handling nuclear weapons must pass NSIs every 18 months in order to retain their certifications.
The USAF issued a new policy directive regarding the handling of nuclear weapons and delivery systems, which prohibits the storing of nuclear armed and nonnuclear armed weapons in the same storage facility. The directive further instructs that all nonnuclear munitions and missiles must be labeled with placards clearly stating that they are not armed with nuclear warheads. Wing commanders are now charged with approving any movement of nuclear weapons from weapons storage areas and must appoint a single individual as a munitions accountability system officer and weapons custodian. All units that handle nuclear weapons must develop a coordinated visual inspection checklist. The policy further directs that airmen charged with handling or maintaining nuclear weapons cannot be on duty for longer than 12 hours, unless during an emergency, when their duty period can be extended to a maximum of 16 hours. The USAF has since instituted a program of surprise inspections at nuclear-armed bases.
Review reports
United States Senate Committee on Armed Services
The Committee on Armed Services is a committee of the United States Senate empowered with legislative oversight of the nation's military, including the Department of Defense, military research and development, nuclear energy , benefits for members of the military, the Selective Service System and...
on February 12, 2008. In addition to Welch and Peyer, Lieutenant General Daniel Darnell, USAF deputy chief of staff for air, space and information operations and Major General Raaberg testified and answered questions from the senate committee's members. During the hearing, Welch stated that, "The military units responsible for handling the bombs are not properly inspected and, as a result, may not be ready to perform their missions." He added, "If you look at all the areas and all the ways that we have to store and handle these weapons in order to perform the mission, it just requires, we believe, more resources and more attention than they're getting." Welch's report concluded that the combining of DoD nuclear forces with nonnuclear organizations has led to "markedly reduced levels of leadership whose daily focus is the nuclear enterprise and a general devaluation of the nuclear mission and those who perform the mission." Nevertheless, neither Welch's nor Peyer's reports found any failures with the security of U.S. nuclear weapons.
Responding to Welch's and Peyer's reports, USAF officials stated that they were already implementing many of the recommendations contained in the reports but added that existing regulations governing nuclear procedures were satisfactory. During his testimony before the senate committee, Darnell stated, "The Air Force portion of the nuclear deterrent is sound, and we will take every measure necessary to provide safe, secure, reliable nuclear surety to the American public."
Inspections, resignations, and further discipline
Minot's full NSI took place beginning on May 17, 2008, and was conducted by inspectors from the Defense Threat Reduction Agency (DTRA) and the AF's Air Combat Command (ACC). On May 25, the DTRA issued the 5th Bomb Wing an "unsatisfactory" rating, the lowest rating possible, from the inspection. The 5th passed the inspection in nine of ten areas, but failed in the area of nuclear security. Following the inspection, Westa stated, "Overall their assessment painted a picture of some things we need to work on in the areas of training and discipline". The 5th Bomb Wing Security Forces Squadron Commander, Lieutenant Colonel John Worley, was replaced by Lieutenant Colonel Stephen Weaver on June 16, 2008. In spite of failing the NSI, the wing kept its nuclear certification. Said Hans Kristensen, director of the Nuclear Information Project at the Federation of American ScientistsFederation of American Scientists
The Federation of American Scientists is a nonpartisan, 501 organization intent on using science and scientific analysis to attempt make the world more secure. FAS was founded in 1945 by scientists who worked on the Manhattan Project to develop the first atomic bombs...
about the 5th's failure in the inspection, "It makes you wonder what’s going on elsewhere, like the nuclear weapons stationed at bases overseas, and at Barksdale Air Force Base and Whiteman Air Force Base
Whiteman Air Force Base
Whiteman Air Force Base is a United States Air Force base located approximately south of Knob Noster, Missouri; east-southeast of Kansas City, Missouri....
." Minot passed the follow-up inspection on August 15, 2008.
Taiwan
Taiwan , also known, especially in the past, as Formosa , is the largest island of the same-named island group of East Asia in the western Pacific Ocean and located off the southeastern coast of mainland China. The island forms over 99% of the current territory of the Republic of China following...
. The investigation, conducted by Admiral Kirkland H. Donald
Kirkland H. Donald
Kirkland Hogue Donald is a United States Navy Admiral who serves as the current Director, Naval Nuclear Propulsion and Deputy Administrator, National Nuclear Security Administration's Naval Reactors. He previously served as Commander, Submarine Force, U.S. Atlantic Fleet, and Commander, Submarine...
, director of US Naval
United States Navy
The United States Navy is the naval warfare service branch of the United States Armed Forces and one of the seven uniformed services of the United States. The U.S. Navy is the largest in the world; its battle fleet tonnage is greater than that of the next 13 largest navies combined. The U.S...
Propulsion, found that the Taiwan missile incident was, in Gates' words, "A degradation of the authority, standards of excellence and technical competence within the nation's ICBM force. Similar to the bomber-specific August 2007 Minot-Barksdale nuclear weapons transfer incident, this incident took place within the larger environment of declining Air Force nuclear mission focus and performance" and that "the investigation identified commonalities between the August 2007 Minot incident and this [the Taiwan] event." In his investigation report, Donald stated that the issues identified by his investigation were, "Indicative of an overall decline in Air Force nuclear weapons stewardship, a problem that has been identified but not effectively addressed for over a decade. Both the Minot-Barksdale nuclear weapons transfer incident and the Taiwan misshipment, while different in specifics, have a common origin: the gradual erosion of nuclear standards and a lack of effective oversight by Air Force leadership"
As a result of the investigation, Gates announced that, "A substantial number of Air Force general officers and colonels have been identified as potentially subject to disciplinary measures, ranging from removal from command to letters of reprimand," and that he had accepted the resignations of USAF Secretary Michael Wynne and USAF Chief of Staff Michael Moseley. Gates added that he had asked James R. Schlesinger
James R. Schlesinger
Dr. James Rodney Schlesinger is an American politician. He is best known for serving as Secretary of Defense from 1973 to 1975 under Presidents Richard Nixon and Gerald Ford...
to lead a senior-level task force to recommend improvements in the stewardship and operation of nuclear weapons, delivery vehicles and sensitive components by the US DoD. Members of the task force came from the Defense Policy Board and the Defense Science Board.
On September 13, 2008, Gates announced Schlesinger's task force's recommendations by calling on the USAF to place all nuclear weapons under a single command. The task force suggested that the new command be called Air Force Strategic Command, which would replace the current Air Force Space Command
Air Force Space Command
Air Force Space Command is a major command of the United States Department of the Air Force, with its headquarters at Peterson Air Force Base, Colorado. AFSPC supports U.S. military operations worldwide through the use of many different types of satellite, launch and cyber operations....
, and make it accountable for the nuclear mission. It also called for all USAF bombers to be placed under a single command. In addition, the task force recommended that the USAF move an additional 1,500 to 2,000 airmen into nuclear-related jobs. Gates announced that acting Air Force Secretary Michael B. Donley
Michael B. Donley
Michael Bruce Donley is the 22nd Secretary of the United States Air Force. Donley has 30 years of experience in the national security community, including service on the staff of the United States Senate, White House and The Pentagon...
and Chief of Staff General Norton A. Schwartz
Norton A. Schwartz
Norton Allan Schwartz is a United States Air Force general who is serving as the 19th Chief of Staff of the Air Force. He previously served as Commander, United States Transportation Command from September 2005 to August 2008...
were "reviewing the recommendations" for disciplinary action against USAF officers previously involved in the nuclear mission. The task force found an, "an unambiguous, dramatic and unacceptable decline in the Air Force’s commitment to perform the nuclear mission and, until very recently, little has been done to reverse it."
On September 25, 2008, the United States Department of Defense
United States Department of Defense
The United States Department of Defense is the U.S...
announced that six Air Force and two Army generals and nine colonels had received letters of reprimand, admonishment, or counseling. Two Air Force major generals were asked to stay in their current position; the others either retired, planned to retire, or were removed from their position. Air Force Chief of Staff Norton Schwartz met with each officer personally before issuing the letters. He noted they committed no offense under the UCMJ, but "did not do enough to carry out their leadership responsibilities for nuclear oversight. "For that they must be held accountable." The Air Force stated that the discipline was in response to the mistaken shipment of nuclear fuze
Fuze
Fuze Beverage, commercially referred to as just Fuze , is a manufacturer of teas and non-carbonated fruit drinks enriched with vitamins. Currently the brand consists of five vitamin-infused lines: Slenderize, Refresh, Tea, Defensify, and Vitalize...
s to Taiwan, not for the Minot nuclear weapons incident.
One of those reprimanded was Lieutenant General Kevin Sullivan, Air Force deputy chief of staff for logistics, installations and mission support at the Pentagon. Sullivan retired at the rank of Major General in November 2008. Lieutenant General Michael Hamel, commander of the Space and Missile Systems Center
Space and Missile Systems Center
The Space and Missile Systems Center is a part of Air Force Space Command of the United States Air Force. SMC is the Air Force’s product center for the development and acquisition of space and missile systems...
, received a letter of admonishment and also retired in November 2008. Major General Roger Burg, commander of the Twentieth Air Force
Twentieth Air Force
The Twentieth Air Force is a numbered air force of the United States Air Force Global Strike Command . It is headquartered at F.E. Warren Air Force Base, Wyoming.20 AF's primary mission is Intercontinental Ballistic Missile operations...
, Major General Kathleen Close, commander of the Ogden Air Logistics Center
Ogden Air Logistics Center
The Ogden Air Logistics Center performs depot maintenance on a number of US Air Force weapon systems. Specifically it supports A-10 Thunderbolt II, B-2 Spirit, F-16 Fighting Falcon, and LGM-30G Minuteman III systems...
, Brigadier General Francis Bruno, Director of Logistics, Air Force Material Command, and Brigadier General Arthur Cameron III, Air Force director of resource integration, also received letters of admonishment.
In November 2008, the 341st Missile Wing
341st Missile Wing
The United States Air Force's 341st Missile Wing is an intercontinental ballistic missile unit headquartered at Malmstrom AFB, Montana...
at Malmstrom Air Force Base
Malmstrom Air Force Base
Malmstrom Air Force Base is a United States Air Force base and census-designated place in Cascade County, Montana, United States. It was named in honor of World War II POW Colonel Einar Axel Malmstrom...
failed its nuclear surety inspection. The 90th Missile Wing at F. E. Warren Air Force Base, failed its nuclear surety inspection one month later. In November 2009 at Kirtland Air Force Base
Kirtland Air Force Base
Kirtland Air Force Base is a United States Air Force base located in the southeast quadrant of the Albuquerque, New Mexico urban area, adjacent to the Albuquerque International Sunport. The base was named for the early Army aviator Col. Roy C. Kirtland...
the 377th Air Base Wing
377th Air Base Wing
The 377th Air Base Wing is a wing of the United States Air Force based at Kirtland Air Force Base, New Mexico.-Mission:Provide world-class nuclear surety, expeditionary forces, and support to base operations.-Units:...
, commanded by Colonel Michael S. Duvall, and 498th Nuclear Systems Wing, commanded by Colonel Richard M. Stuckey, failed their nuclear surety inspections.
On October 30, 2009 Westa was relieved as commander of the 5th Bomb Wing by Major General Floyd L. Carpenter, commander of 8th Air Force. Carpenter stated that Westa was relived due to his "inability to foster a culture of excellence, a lack of focus on the strategic mission … and substandard performance during several nuclear surety inspections, including the newly activated 69th Bomb Squadron."
On January 8, 2009 Schlesinger's task force released its report regarding the overall DoD's management of the country's nuclear weapons mission. The report criticized the DoD for a lack of focus and oversight on its nuclear weapons programs and recommended that the DoD create a new assistant secretary position to oversee its nuclear management. The task force found that within the DoD only the United States Navy
United States Navy
The United States Navy is the naval warfare service branch of the United States Armed Forces and one of the seven uniformed services of the United States. The U.S. Navy is the largest in the world; its battle fleet tonnage is greater than that of the next 13 largest navies combined. The U.S...
was effectively managing its nuclear arsenal. The panel stated that it found, "a distressing degree of inattention to the role of nuclear weapons in deterrence among many senior DoD military and civilian leaders."
New command