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Prepared by the Integrated Air and Missile Defence Policy Committee. Endorsed by NATO Defence Ministers at the 13 February 2025 Defence Ministerial in Brussels.

Context

  1. As stated in NATO’s Strategic Concept agreed at the Madrid Summit, “the Euro-Atlantic area is not at peace”. The Alliance is faced with multifaceted threats, systemic competition from assertive and authoritarian actors, as well as growing security challenges from all strategic directions.
  2. In light of the evolving security environment, the Alliance’s operational commitments will continue to be complex, multi-domain and far-reaching. NATO continues to strengthen its longer-term deterrence and defence posture, to further develop the full range of ready forces and capabilities necessary to maintain credible deterrence and defence, and to deny any potential adversary any possible opportunities for aggression.
  3. The Air domain is becoming increasingly contested. Adversaries and peer competitors are seeking to challenge NATO, including through a more coherent use of sensors, Command, Control, Communications and Information (C3I) systems and advanced tactics. They are acquiring or developing new systems, from large numbers of small, unsophisticated Un-manned Aircraft Systems (UASs) to longer range and more complex missiles.
  4. In this context, NATO continues to take all necessary steps to ensure that its Integrated Air and Missile Defence (IAMD) is coherent, resilient, and adaptable to the evolving security environment. NATO IAMD is a 24/7 construct where national authority to defend Allies is assigned to NATO on a permanent basis and where NATO and national resources are employed under a NATO Command and Control structure.
  5. NATO IAMD comprises essential and continuous activities in peacetime, crisis and times of conflict. NATO IAMD incorporates all measures to contribute to deter any air and missile threat or to nullify or reduce their effectiveness. The NATO IAMD is conducted in a 360- degree approach, and tailored to address all air and missile threats emanating from all strategic directions from state and non-state actors.

Aim and scope

  1. This policy establishes the strategic framework for NATO IAMD including objectives and principles underpinning the Alliance’s efforts to deter and defend against all air and missile threats, from a 360-degree approach, to strengthen the Alliance’s deterrence and defence posture and preserve the sovereignty and territorial integrity of all Allies.

Security environment and challenges

  1. Russia is the most significant and direct threat to Allies’ security and to peace and stability in the Euro Atlantic area, and terrorism, in all its forms and manifestations, is the most significant direct asymmetric threat to the security of our citizens, and to 
    international peace and prosperity. While the two main threats are different in nature, there is a need to be able to counter both Russia’s strategic patterns and operations and the strategic patterns and cycle of operations of terrorist groups and organisations. Russia is developing, fielding and employing numerous advanced air and missile capabilities, and has launched salvo attacks from all azimuths and at all altitudes and velocities, ranging from small UASs to cruise, ballistic and hypersonic missiles.
  2. Beyond the two main threats, the proliferation of ballistic missiles, cruise missiles and UASs of all types poses threats to Euro-Atlantic security, with increasing numbers of state and non-state actors possessing, developing or acquiring air and missile capabilities that can reach NATO. 
  3. NATO is closely monitoring all state or non-state actors with air and missile capabilities, capable of reaching the Euro-Atlantic area, as well as countries such as the Democratic People’s Republic of Korea, Iran and the People’s Republic of China, which engage in support for Russia’s defence industrial base in this domain, thereby becoming decisive facilitators of Russia’s war against Ukraine, which would increase the threat that Russia poses to its neighbours and to Euro-Atlantic security.

Ddefinitions and description of NATO IAMD

  1. As part of Joint Air Power, NATO IAMD is a critical component of NATO’s deterrence and defence, incorporating all measures to contribute to protect and defend our forces, territory and populations, against the full spectrum of air and missile threats. As set out in the Strategic Concept, missile defence is part of the appropriate mix of capabilities of NATO’s deterrence and defence.
  2. NATO IAMD incorporates actions in peacetime, crisis and conflict, necessary to continuously safeguard and protect the Alliance, as part of NATO collective defence arrangements.
  3. NATO IAMD is defensive in nature and in line with NATO’s 360-degree approach. The threat spectrum of the NATO IAMD includes all objects assessed to be capable to put the Alliance at risk from the air, from any direction, at any velocity and altitude, ranging from small, low- and slow-flying UASs to all types of cruise and ballistic missiles, including hypersonic.
  4. In the event of a crisis or conflict, NATO IAMD serves as a vital component of the Alliance’s security and military strategy, ensuring operational freedom, defending critical infrastructure and assets required for the execution of operational plans and protecting forces. 

Guiding principles

  1. Adapting NATO IAMD to the evolving security landscape is based on several principles, which applies in all aspects related to the development, implementation and execution of NATO IAMD. 
  2. Threat informed: NATO continuously assesses and understands the capabilities, intentions and tactics of the potential adversaries, in order to effectively implement solutions to address or mitigate them.
  3. Multi-domain approach and interoperability: NATO adopts a multi-domain approach to IAMD that integrates capabilities from various domains (land, air, sea, space and cyber). In this context, interoperability is a critical aspect to ensure the seamless integration and coordination with and among Allies of their air and missile defence systems and command and control structures through standardization of doctrines, practices, procedures, communication protocols and coordination mechanisms. 
  4. Speed and agility: Speed and agility are critical for maintaining a robust and effective air and missile defence capability in today’s rapidly changing threat environment. Rapid deployment, repositioning and redundancy enable quick detection, decision making and response, ultimately enhancing the overall defensive posture. 
  5. Tailored and flexible response: In order to permanently ensure the appropriate levels of readiness and responsiveness NATO IAMD is able to rapidly and flexibly manage changes, based on situational awareness, aiming to ensure the protection of key elements of NATO critical infrastructure and assets. NATO IAMD is, therefore, adaptable and may change as the dynamics of the security context changes.
  6. Offensive operations: they are an integral part of a comprehensive air and missile defence construct, and are critical to maintaining a tailored and flexible approach against air and missile threats and are designed to have a deterrent effect as well as to nullify or reduce the effects of an air or missile attack.
  7. Resilience and survivability: Recognising the potential of adversaries to seek to disrupt or degrade NATO IAMD through kinetic and non-kinetic means (cyberattacks, electromagnetic warfare), NATO Integrated Air and Missile Defence System (NATINAMDS) architecture is developed with resilience by design, in order to ensure continuity of operations in the face of disruptions. Survivability is achieved through NATINAMDS elements’ inherent self-defence capabilities and/or effective force protection, deception, and airspace control procedures.
  8. Coordination: NATO IAMD requires establishment of appropriate liaison and coordination functions between the political and military authorities within the Alliance, the overall command and force structure, as well as with other civil authorities/agencies as required. 
  9. Continuous adaptation: NATO IAMD is continuously adapting to address evolving threats and future challenges and developments through ongoing evaluation and refinement of concepts, plans, procedures and technologies. 
  10. The implementation of the above principles in a coordinated and balanced approach will ensure the achievement of the no threat – no launch – no impact – no consequences effects as described below. 
    1. The “no threat” effect is mainly achieved through efforts in the political dimension, in particular by using a broad range of deterrence, arms control and non-proliferation activities. Deterrence can be achieved through a combination of political means (e.g., diplomacy, consultation) and military means (e.g., show of force).
    2.  Deterrence could also contribute to reaching the “no launch” effect. In addition, this effect could be achieved through offensive operations providing effects in support of NATO IAMD.
    3. Employment of active air and missile defence capabilities is the only available mechanism to nullify hostile air and missile actions, in order to achieve the “no impact” effect.
    4. Passive AMD measures are required to mitigate the potential consequences of an air or missile attack, aiming to achieve the “no consequence” effect.

NATO IAMD functional areas

  1. NATO IAMD comprises four functional areas: Air Surveillance, Battle Management, Command, Control, Communications and Information, Active Air and Missile Defence, and Passive Air and Missile Defence. Effective coordination and integration among these functional areas are essential for a seamless and comprehensive IAMD posture, in order to achieve the “no impact” and/or “no consequence” effects.

Air Surveillance

  1. Threat detection is essential for the activation of appropriate defensive measures. The detection and tracking of all potential air and missile threats is a top priority and necessary from a 360-degree approach to ensure sovereignty and territorial integrity of Allies.
  2. Robust air surveillance is a precondition for situational awareness. Continuous monitoring of the airspace is crucial for an effective NATO IAMD. Therefore, NATO’s air surveillance architecture is designed to provide persistent coverage, detect and track any air and missile threats early in their trajectory, continuously monitor them, identify and assess their characteristics and predict their flight trajectories (surface to space), thus providing more time for response and/or interception. 
  3. The air surveillance capability consists of a combination of a wide range of active and passive, static and deployable, military and civilian networked sensors employed to cover all ranges and altitudes. Space-based data, products and services provided by Allies and other types of sensor data provide early essential detection and tracking capabilities, in particular against low- and slow- flying threats.
  4. Capable surveillance data fusion and analysis methods, including potentially using Artificial Intelligence, advanced algorithms and machine learning techniques, are also critical for providing a coherent and accurate picture of the battlespace. 

Battle Management, Command, Control Communications and Information (BMC3I)

  1. The Alliance must also be able to respond robustly to challenges of varying degrees of complexity and size requiring BMC3I, in particular Air Command and Control (Air C2) capabilities that can be forward deployed, employed, and sustained wherever and whenever they are required.
  2. The development, implementation and employment of the NATO Air C2 capability aims to ensure complementarity between centralised control (aiming at setting the strategic and operational directions and allocate resources) and decentralised execution (allowing for flexible and responsive actions at tactical levels). This is critical to enabling NATO IAMD to perform efficiently in dynamic and complex environments.
  3. Network centric operations and information sharing is essential to achieving a common operational picture and enhanced situational awareness. The Air C2 capability must be able to facilitate seamless integration of sensors, effectors and decision-making processes across multiple structures, forces and platforms.
  4. The evolving nature of airborne threats requires NATO Air C2 to be flexible and adaptable. This includes the ability to rapidly adjust the posture, reconfigure networks and/or deploy additional resources in response to changing threat dynamics or operational requirements.
  5. NATO Air C2 construct must be designed with resilience and redundancy to withstand disruptions or attacks. This may involve the use of distributed C2 nodes, including national ones, as appropriate, resilient networks and backup solutions to ensure continuity of operations.

Active Air and Missile Defence

  1. NATO IAMD has adopted a comprehensive approach that combines various systems and technologies, able to operate at different ranges and altitudes, in order to provide a layered defence against all types of air and missile threats (i.e., UASs, fixed and rotary wing aircraft, all types of cruise and ballistic missiles, including  
    hypersonic), thus increasing the overall effectiveness of defence by providing redundancy and improving the probability of successful interceptions.
  2. The threat posed by the Class I (unmanned aircraft with a mass lower than 150 kg) UASs presents a new set of challenges to operate in a multi-domain environment, within both domestic and deployed operating environments.
  3. While Class I UASs possess distinct characteristics, which may require specific defensive solutions, they must be an integral part of a coherent, coordinated and flexible NATO IAMD approach, in particular in the C2 domain, to protect NATO critical infrastructure and assets.
  4. Active Air and Missile Defence comprises the mission areas of Airborne Air Defence and Surface Based Air and Missile Defence, supported by other available means as appropriate. NATO IAMD must be capable of executing both Airborne Air Defence and Surface Based Air and Missile Defence activities simultaneously, employing a modular, adaptable and reconfigurable mix of airborne and surface-based platforms.
  5. Airborne Air Defence requires resources with an all-weather, day and night capability, which range from agile fighter aircraft with a full-spectrum weapons capability to armed helicopters. In addition, enabling capabilities, such as electronic warfare, airborne early warning and control systems and air-to-air refuelling, are required to enhance the overall effectiveness and flexibility of Airborne Air Defence.
  6. Surface Based Air and Missile Defence requires a mix of short-, medium- and long-range systems, ground-based or maritime-based, able to provide mutual and complementary support to mitigate the limitations of each system defence, and aiming to create a multi-layered defence that can address various types of air and missile threats, from small, low- and slow-flying UASs to all types of cruise and ballistic missiles, including hypersonic.

Passive Air and Missile Defence 

  1. Passive air and missile defence measures must be in place in order to minimise the vulnerability of critical infrastructure and assets and/or the consequences of impact, generated by air and missile threats, as a complement to active measures, thus contributing to a resilient and survivable NATO Integrated Air and Missile Defence System.
  2. Passive air and missile defence measures include, but are not limited to, hardening and protection, camouflage, concealment and deception, dispersion and redundancy. A broader and systemic perspective needs to be adopted as regards the potential NATO passive air and missile defence measures for NATO’s critical infrastructure and assets, by considering resilience as a whole and not only the survivability of separate key elements. 
  3. In support of the implementation of passive air and missile defence measures, including at the national level, NATO IAMD provides alerts and early warning information on air and missile attack, including dissemination of shared early warning information on missile launches, to Allied national authorities.

NATO IAMD design

  1. NATO Air Policing is a collective task involving the continuous presence of fighter aircraft and crews which are ready to react quickly. It aims at preserving the integrity of the NATO Airspace1 part of Alliance Airspace2 in peacetime. It is a permanent task, a clear demonstration of Alliance cohesion and solidarity, and is conducted independently of any identifiable threat in peacetime.
  2. NATO BMD is purely defensive and does not undermine strategic stability.  The aim of NATO Ballistic Missile Defence is to provide full coverage and protection for all NATO European populations, territory and forces against the increasing threats posed by the proliferation of ballistic missiles, based on the principles of indivisibility of Allied security and NATO solidarity, equitable sharing of risks and burdens, as well as reasonable challenge, taking into account the level of threat, affordability and technical feasibility and in accordance with the latest common threat assessments agreed by the Alliance. Should international efforts reduce the threats posed by ballistic missile proliferation, NATO Ballistic Missile Defence can, and will, adapt accordingly.
  3. The management of NATO’s IAMD posture addresses the ways and means to transition from peacetime up to and including crisis and conflict situations against any air and missile threat, from 360-degrees, within SACEUR’s area of responsibility, throughout its depth.
  4. The Rotational Model is a framework contributing to readiness, preparedness and interoperability, in particular through training and rotational presence of modern air defence systems and capabilities across SACEUR’s area of responsibility, with an initial focus on the Eastern Flank, thereby strengthening our deterrence. The Rotational Model is one of the measures contributing to a credible NATO IAMD posture across SACEUR’s area of responsibility, and as part of a coherent 360-degree posture.

Specific condiderations

  1. NATO IAMD adopts a 360-degree-facing, graduated readiness posture that can mobilise and enable air power throughout SACEUR’s area of responsibility while  keeping sufficient flexibility, mobility and redundancy to adapt to possible short notice changes in the strategic and/or operational environment, during peacetime, crisis and times of conflict.
  2. For this purpose, NATO maintains a persistent 360-degree surveillance capability (surface to space) and the ability to monitor and warn on any air and missile threats on a 24/7 basis.
  3. In crisis and conflict NATO IAMD builds on the peacetime posture and continues to increase the size and readiness of the related capabilities. NATO IAMD is able to seamlessly and rapidly transit between peacetime, crisis and conflict. 
  4. NATO IAMD aims to ensure that conditions are met for rapid detection, decision and engagement of the full spectrum of air and missile threats including salvos from all azimuths, at all altitudes and velocities, ranging from all classes of UASs, to all types of cruise and ballistic missiles, including hypersonic. 
  5. NATO IAMD continues to focus on delivering the effects designed to deter any air and missile threat and nullify or reduce their effectiveness and defend the Alliance against any air and missile attacks, also by integrating both defensive and offensive capabilities, better leveraging the passive air and missile defence, and maximising the use of other domains.
  6. Active air and missile defence can be complemented by offensive operations providing effects in support of IAMD, which are designed to reduce, neutralise or destroy air and missile threats before they can be employed by any adversary. The coordination of these actions providing effects in support of NATO IAMD is complex and multi-domain.
  7. NATO IAMD’s effectiveness and efficiency within the same area of operations requires a high degree of coordination. Civil-military coordination is given a high priority, in particular for airspace control and for passive air and missile defence in order to minimise the consequences of air and missile attacks.
  8. Cooperation and coordination with civil aviation stakeholders is key to the efficient and effective execution of NATO IAMD. Close coordination between NATO and national Air Policing forces is required in peacetime. Moreover, NATO Air Policing will contribute to the greatest extent possible to national requirements, including assistance to national responses to terrorist use of civilian air vehicles.
  9. Assured access to and use of Space-based data, products and services are crucial to successfully conduct and execute NATO IAMD. NATO IAMD highly depends on space-based data, products and services provided by and through Space assets, which are voluntarily provided and shared by Allies, to include, but not limited to, Early Warning, Satellite Communications, Intelligence Surveillance and Reconnaissance, Targeting, as well as Positioning, Navigation, and Timing.  
  10. Sharing information in support of, inter alia, achieving better situational awareness and cognitive superiority, is a critical element for the success of a joint, multi-domain campaign. 
  11. The Alliance establishes, trains, exercises, evaluates and sustains sufficient and effective NATO IAMD contributing forces to conduct missions and operations in peacetime, crisis and times of conflict. The Alliance aims to maximise IAMD related exercise and training opportunities, and align NATO and national IAMD training and exercises. This will contribute to increasing the interoperability of NATO IAMD forces, and ensuring the appropriate level of readiness.
  12. Defence planning activities related to NATO IAMD ensure the availability of the full range of capabilities required to counter threats and challenges ranging from small, covert attacks, possibly launched by non-state actors, to multi-axis and salvo attacks from cruise, hypersonic and ballistic missiles.
  13. Ensuring the volume and quality of defensive systems against all range of air and missile threats is a critical factor for ensuring the strength and durability of NATO IAMD. 
  14. Defence planning needs to consider how NATO Allies’ capabilities, such as inter alia space-based systems and commercial products, electronic warfare and network connectivity, can enable and multiply the effectiveness of NATO IAMD.
  15. Defence planning needs to assume that current and future NATO IAMD activities will be conducted in a contested and often degraded environment, and consider the requirement to defend against the ever-increasing cyber and electronic warfare threats. 

Conclusions

  1. This policy establishes the strategic framework for NATO IAMD, including the objectives and principles underpinning Alliance’s efforts to deter and defend against all air and missile threats, from a 360-degree approach, to strengthen the Alliance’s deterrence and defence posture and preserve the sovereignty and territorial integrity of all Allies.
  2. The principles identified in the policy drive all aspects related to the development, implementation and execution of NATO IAMD.

1. In accordance with NATO Terminology Database, the airspace above any NATO nation and its territorial waters.

2. In accordance with NATO Terminology Database, NATO airspace and any airspace area where NATO may conduct operations, as agreed by the Council.

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