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NATO's secretary general has called on Russia to be open about its "Zapad-2021" military exercises and the troop numbers involved as alarm grows in Poland, the Baltics and Ukraine about Moscow's intentions.

"Russia should behave in a predictable and transparent way," NATO Secretary-General Jens Stoltenberg told Reuters. The main phase of the exercises is due to start on September 10.

"What we have seen before is that the numbers of troops participating in the exercises significantly exceed the numbers announced," Stoltenberg said, urging Moscow to meet its obligations under the Vienna Document, an international agreement governing military exercises in Europe.

According to a tally by NATO Review, an allied magazine, Russia deployed between 60,000 and 70,000 troops in Zapad-2017 but only declared 12,700 personnel. Russia, which will join forces with Belarusian troops, says it is within its rights to exercise on its territory and is clear about the numbers involved.

Belarus's defence ministry said in August the exercises would be held at training grounds in both Russia and Belarus and will be based on a scenario where the two countries are under attack.

"The reality is that since the end of the Cold War, Russia has never opened an exercise for mandatory inspections," Stoltenberg said. "So we will be vigilant."