Updated May 17, 2021
Defense Primer: DOD “Title 10” 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 federal departments,
foreign security establishments. SC activities include
primarily DOS. Some DOD SC activities require varying
levels of coordination with DOS. Within DOD, the
the transfer of defense articles and services;
Undersecretary of Defense for Policy (USD[P]) exercises
military-to-military exercises;
overall direction, authority, and control over SC matters.
military education, training, and advising; and
The Defense Security Cooperation Agency (DSCA)
capacity building of partner security forces.
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 many SC programs,
nations (PNs) to work with the United States to achieve
developing SC policy, and providing DOD-wide SC
strategic objectives. They are considered a key tool for
guidance. DSCA is also DOD’s main interlocutor between
achieving U.S. national security and foreign policy
the PNs, implementing agencies, and the defense industry.
objectives. These activities are executed through both
The Assistant Secretary of Defense for Special Operations
DOD-administered SC programs (authorized under Title
and Low-Intensity Conflict (ASD-SO/LIC) oversees and
10, U.S.C.) and DOD-implemented State Department
approves some SC training activities that are managed by
(DOS) security assistance (SA) programs (authorized under
DSCA. U.S. Special Operations Command (SOCOM)
Title 22, U.S.C). Beyond grant-based programs, SC
coordinates those SC activities executed by special
encompasses the Foreign Military Sales program and
operations forces (SOF). DOS leads U.S. foreign aid and
enables U.S. and PN collaboration on defense articles. The
has final say on SA. DOS’s Bureau of Political-Military
following sections focus on DOD “Title 10” activities.
Affairs (PM) is the principal link to DOD and ensures that
SC: Policy and Objectives
SA is integrated with other U.S. policies and activities at
SC activities aim to achieve particular objectives in support
the country, regional, and global levels. PM also determines
of U.S. national security and defense strategies.
PN eligibility, appropriate SA programs, and which defense
Specifically, SC may build defense relationships that
articles and equipment are permitted for transfer.
promote U.S. security interests, enhance military
Figure 1. Title 10 SC Budget Categories, by Organization
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 United States 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 United States.
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 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 increase their influence. Some DOD
officials and defense analysts have suggested that rather
than a shift, counterterrorism, as well as irregular warfare,
should remain priorities within GPC. The Biden
Administration has yet to release a new NDS; however, its
Interim National Security Strategic Guidance broadly
identifies authoritarianism and strategic competition as
Source: CRS. Data from DSCA SC Budget Display, FY2021.
priority threats that require coordination and cooperation
with allies and partners.
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link to page 2 Defense Primer: DOD “Title 10” Security Cooperation
Table 1. Select Title 10 Security Cooperation Accounts, FY2019-FY2021 ($ millions)
FY19
FY20 Enacted FY21 FY21 Authorized FY21 Appropriated
Account
Actual
/Est.
Req.
P.L. 116-283
P.L. 116-260
DSCA SC - Base
601.5
639.6
598.6
588.6
656.1
DSCA SC - Overseas Contingency Operations
1,392.0
1,439.2
1,557.8
1,630.3
1,528.6
Cooperative Threat Reduction
350.2
373.7
238.5
360.2
360.2
Overseas Hum., Disaster, & Civic Aid
117.7
135.0
109.9
109.9
147.5
Afghanistan Security Forces Fund (ASFF)
3,920.0
4,200.0
4,015.6
4,015.6
3047.6
Counter-IS in Iraq & Syria Train-&-Equip (CTEF) 1,352.2
1,195.0
845.0
522.5
710.0
Source: CRS analysis of DOD Budget Documents; H.R. 6395 as became law (P.L. 116-283); H.R. 133 as became law (P.L. 116-260).
Title 10 SC Reforms from the FY2017
military and dual-use items, using annual authorizing
NDAA
legislation to establish temporary authorities or modify the
The post-9/11 period saw the rapid and piecemeal
U.S. Code on an enduring basis, reviewing proposed arms
expansion of DOD SC activities, mainly as temporary
transfers and planned SC/SA activities and funding
authorities that required annual renewal in the National
obligations, mandating reports, and holding relevant
Defense Authorization Act (NDAA). The FY2017 NDAA
hearings. The Senate also influences SC through its advice
(P.L. 114-328) consolidated and codified existing Title 10
and consent to the ratification of relevant treaties.
SC authorities into 10 U.S.C. §§301-386. Other provisions
DOD’s FY2021 SC Budget Request,
aimed to make improvements to the SC programs and
Authorizations, and Appropriations
themselves, as well as improvements in the management
The final FY2021 NDAA (P.L. 116-283) mostly
and oversight of those programs. Key reforms from the
maintained funding levels from DSCA’s FY2021 SC
FY2017 NDAA included requirements for the following:
budget request, although some provisions identify SC
A consolidated DOD budget request for Title 10 SC
priority areas. In establishing the Pacific Deterrence
programs and activities (10 U.S.C. §381); the first was
Initiative (PDI), the NDAA requires DOD activities,
released for FY2019.
including SC, to prioritize the Indo-Pacific region. The
Harmonized congressional notification requirements for
creation of PDI also indicates that the Indo-Pacific will
most DOD train and equip programs (10 U.S.C. §333).
remain a priority for years to come. Other NDAA
provisions include a requirement for DOD to identify ways
Institutional capacity building programs to strengthen
to enhance SC in African countries, as well as amplify SC
partner defense institutions (10 U.S.C. §332).
requirements from the Women, Peace, and Security Act of
A DOD SC Workforce Development Program to
2017. The bill also amended DOD’s main train and equip
manage a professional workforce in support of SC
program (10 U.S.C. §333) to add “air domain awareness
programs and activities (10 U.S.C. §384).
operations” and “cyberspace security and defensive
A program of assessment, monitoring, and evaluation
cyberspace operations” as authorized areas for support.
(AM&E) to be informed and supported by strategic
The final FY2021 Defense Appropriations bill (P.L. 116-
evaluations on initial PN assessments, monitoring of
260) increased funds for DSCA’s base budget and slightly
implementation, and the efficiency and effectiveness of
decreased its Overseas Contingency Operations budget. The
SC programs and activities (10 U.S.C. §383).
bill provides significant increases for SC in both Africa
Congressional Role
Command’s and Southern Command’s areas of
Congress provides the authority and funding for SC
responsibility (funds for both have declined since FY2017)
programs. Title 10 SC activities fall under the jurisdiction
and cuts funding to both CTEF and ASFF (see Table 1).
of the armed services committees, while Title 22 (DOS) SA
Potential Questions for Congress
activities are under the jurisdiction of the Senate Foreign
What is the implementation status of key FY2017
Relations and House Foreign Affairs committees. Although
NDAA-mandated SC reforms? In what ways have the
the armed services committees are responsible for the
reforms been successful? What reforms remain
authorizing legislation for Title 10 SC programs, both
outstanding? What improvements can be made to
committees exercise oversight of SC activities and the
address SC reforms that have not been implemented?
management of SC policy, including the level of
coordination between DOD and DOS. Funding for Title 10
Are the required congressional notifications and reports
SC programs and activities is provided through annual
sufficient for Congress for oversight of SC activities?
appropriations bills, which originates in the appropriations
How can Congress determine the implications of the
committees, specifically the defense subcommittees.
money it appropriates on SC programs? How does DOD
evaluate the effectiveness of SC programs?
Primarily (but not solely) through these six committees,
How are SC programs contributing to or furthering U.S.
Congress plays critical roles in the design and oversight of
foreign policy goals and strategic objectives? How do
SC programs and in ensuring that SC activities are aligned
SC activities align with GPC? What impact is the
with and meeting U.S. national security and foreign policy
Coronavirus Disease 2019 (COVID-19) pandemic
objectives. Pursuant to statutory authorities, the executive
having on U.S. security partnerships and SC programs?
branch must notify relevant committees on a regular basis
about some, but not all, SC activities. Congress can exercise
Christina L. Arabia, Analyst in Security Assistance,
oversight roles in numerous ways, including determining
Security Cooperation and the Global Arms Trade
how the executive branch makes decisions for the export of
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Defense Primer: DOD “Title 10” Security Cooperation
IF11677
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