November 2, 2020
Defense Primer: Security Cooperation
Security Cooperation (SC) Overview
SC: Roles and Responsibilities
The Department of Defense (DOD) uses the term security
Many SC activities require DOD to coordinate with
cooperation (SC) to refer broadly to DOD interactions with
multiple DOD components and other U.S. agencies,
foreign security establishments. SC activities include
primarily DOS. Some DOD SC activities require varying
levels of coordination with DOS. Within DOD, the
transferring defense articles and services,
Undersecretary of Defense for Policy (USD[P]) exercises
military-to-military exercises,
overall direction, authority, and control over SC matters.
ministerial advising, and
The Defense Security Cooperation Agency (DSCA)
train and equip programs.
represents the interests of the Secretary of Defense and
USD(P) in SC matters and is tasked with directing,
SC programs are intended to encourage and enable partner
administering, and executing DSCA-managed SC
nations (PNs) to work with the United States to achieve
programs, developing SC policies, and providing DOD-
strategic objectives. They are considered a key tool for
wide SC guidance. DSCA is also DOD’s main interlocutor
achieving U.S. national security and foreign policy
between the PNs, the military departments, implementing
objectives. These activities are executed through both
agencies, and the defense industry. The Assistant Secretary
DOD-managed and -administered SC programs and DOD-
of Defense for Special Operations and Low-Intensity
administered State Department (DOS) security assistance
Conflict (ASD-SO/LIC) oversees and approves some SC
(SA) programs. Those DOS SA programs that DOD
training activities that are managed by DSCA. U.S. Special
administers are considered an element of SC that is funded
Operations Command (SOCOM) coordinates those SC
and authorized by DOS. Both types of programs receive
activities executed by special operations forces (SOF). DOS
congressional appropriations and are legally authorized
leads U.S. foreign aid and retains statutory responsibility
under the Foreign Assistance Act of 1961, as amended, and
for SA. DOS’s Bureau of Political-Military Affairs (PM) is
the Arms Export Control Act. Beyond SC grant programs,
the principal link to DOD and works to ensure that SA is
SC encompasses the Foreign Military Sales program and
integrated with other U.S. policies and activities at the
enables U.S. and PN collaboration on defense articles.
country, regional, and global levels. PM also determines PN
SC: Policy and Objectives
eligibility, appropriate SA programs, and which defense
articles and equipment are permitted for transfer.
DOD SC activities aim to achieve particular objectives in
support of U.S. national security and defense strategies.
Figure 1. SC Budget Categories, by Organization
Specifically, SC may build defense relationships that
promote U.S. security interests, enhance military
capabilities of U.S. allies and partners, and provide the
United States with access to PNs. Under the overarching
goal of furthering U.S. national security and foreign policy
interests, SC emphasizes partnerships, aiming to be
mutually beneficial for the U.S. and its partners. SC
activities aim to develop and strengthen a PN’s ability to
provide internal security, contribute to regional security
efforts, combat shared threats, and increase military
interoperability with the U.S.
The 2018 National Defense Strategy (NDS) signaled the
Trump Administration’s intention to shift SC activities
from nearly two decades of prioritizing counterterrorism
toward “great power competition” (GPC) with Russia and
China. The shift raised questions and debate as to how SC
should be realigned to meet this objective and what the
implications could be for scaling down counterterrorism-
focused SC activities in Africa and the Middle East,
especially as Russia and China move to increase their
influence in those regions. Some have suggested that rather
than a shift, counterterrorism, as well as irregular warfare,
should remain priorities within GPC.
Source: CRS. Data from DSCA SC Budget Display, FY2021.
https://crsreports.congress.gov
Defense Primer: Security Cooperation
Table 1. Select Security Cooperation Accounts, FY2019-FY2021 ($ millions)
FY19
FY20 Enacted FY21
Senate NDAA House NDAA House Approp.
Account
Actual
/Est.
Req.
S. 4049
H.R. 6395
H.R. 7617
DSCA SC - Base
601.5
639.6
598.6
598.6
598.6
659.2
DSCA SC - OCO
1,392.0
1,439.2 1,557.8
1,880.3
1,337.8
1,651.3
Cooperative Threat Reduction
350.2
373.7
238.5
288.5
373.7
360.2
Overseas Hum., Disaster, & Civic Aid
117.7
135.0
109.9
109.9
109.9
147.5
Afghan. Security Forces Fund
3,920.0
4,200.0 4,015.6
4,015.6
3515.6
3,050.0
Counter-IS in Iraq & Syria (CTEF)
1,352.2
1,195.0
845.0
522.5
700.0
700.0
Source: CRS analysis of DOD Budget Documents; S. 4049 as passed in Senate; H.R. 6395 as passed in House; H.R. 7617 as passed in House.
SC Reforms from the FY2017 NDAA
FY2021 SC Budget Request,
The post-9/11 period saw the rapid and piecemeal
Authorizations, and Appropriations
expansion of DOD SC activities, mainly as temporary
DSCA’s FY2021 SC budget justification included a new
authorities that required annual renewal in the National
account, the National Defense Strategy Implementation
Defense Authorization Act (NDAA). The FY2017 NDAA
(NDS-I) account, which would consolidate multiple
initiated significant reforms that consolidated and codified
capacity building authorities. The House version of the
existing SC programs into 10 U.S.C. §301-386. Many of
FY2021 Defense Appropriations bill does not include this
the reforms aimed to make improvements to the SC
consolidation and recommends funding for the SC
programs and activities themselves, as well as
programs separately. The FY2021 Senate NDAA states that
improvements in the management and oversight of those
the Indo-Pacific Maritime Security Initiative, which was
programs. Key reforms from the FY2017 NDAA included
consolidated into the NDS-I, should remain a standalone
requirements for the following:
SC initiative.
A consolidated budget for all SC programs and activities The House version of the FY2021 Defense Appropriations
(10 U.S.C. §381); the first was released for FY2019.
bill would increase DSCA’s base and Overseas
Undertaking Institutional Capacity Building programs to Contingency Operations (OCO) budget and recommends
accompany and complement programs to build the
significant increases for SC in both Africa Command’s and
capacity of foreign security forces (10 U.S.C. §333).
Southern Command’s areas of responsibility (funding for
both has declined since FY2017). The House and Senate
A DOD SC Workforce Development Program to
versions of the FY2021 NDAA would decrease the amount
manage a professional workforce in support of SC
authorized for Iraq through the Counter-Islamic State of
programs and activities (10 U.S.C. §384).
Iraq and Syria Train and Equip Fund (CTEF). The Senate
A program of assessment, monitoring, and evaluation
version would transfer $322.5 million from CTEF for Iraq
(AM&E) to be informed and supported by strategic
to DSCA’s OCO funds and specifies that the transferred
evaluations on initial PN assessments, monitoring of
funds be used for traditional programs building partner
implementation, and the efficiency and effectiveness of
capacity.
SC programs and activities (10 U.S.C. §383).
Potential Questions for Congress
Increasing ASD-SO/LIC’s role in management of SOF
What is the implementation status of key FY2017
and SOCOM (§922, FY2017 NDAA; P.L. 114-328).
NDAA-mandated SC reforms? In what ways have the
Congressional Role
reforms been successful? What reforms remain
Congress provides the authority and funding for DOD’s SC
outstanding? What improvements can be made to
programs. The armed services committees authorize
address those SC reforms that have not been fully
funding for DOD SC programs, while State SA programs
implemented?
receive authorization from the Senate Foreign Relations and
Are the required congressional notifications and reports
the House Foreign Affairs Committees. The appropriations
sufficient for Congress to exercise oversight of SC
committees fund security cooperation/assistance in annual
activities, and are they being fully implemented? How
appropriations bills.
can Congress determine the implications of the money it
Through these six committees, Congress plays critical roles
appropriates on SC programs? How does DOD evaluate
in the design and oversight of SC programs and in ensuring
the effectiveness of SC programs?
that SC activities are aligned with and meeting U.S.
How are SC programs contributing to or furthering U.S.
national security and foreign policy objectives through
foreign policy goals and strategic objectives? How do
development, consideration, and action on SC-proposed
SC activities align with GPC? What impact is the
legislation. Relevant committees are notified on a regular
Coronavirus Disease 2019 (COVID-19) pandemic
basis about some, but not all, SC activities. Congress can
having on U.S. security partnerships and SC programs?
exercise oversight roles in numerous ways, including
How effective have efforts been to create security
determining how the executive branch makes decisions for
assistance units within regular forces, such as the
the export of military and dual-use items, using annual
Security Force Assistance Brigades? Has their
authorizing legislation to modify the U.S. Code, reviewing
deployment reduced the strain on SOF as intended?
proposed arms transfers and planned SC/SA activities and
funding obligations, mandating reports, and holding
Christina L. Arabia, Analyst in Security Assistance,
relevant hearings. Congress also influences SC through the
Security Cooperation and the Global Arms Trade
ratification of treaties with SC and SA implications.
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Defense Primer: Security Cooperation
IF11677
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