Nuclear weapons are perceived to be a huge red line among the general public and among governments. Unless a country is in a really dire situation, the tactical benefit of using a small nuclear weapon will likely be far outweighed by the diplomatic and economic cost. A major military power would have access to multiple weapons capable of achieving their tactical objectives and hence would be reluctant to use a nuclear one unless to deter some kind of existential threat. A less major military and economic power would likely be highly sanctioned and possibly economically blockaded by the major powers if they use nukes.
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