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Defense Primer: Security Cooperation
November 2, 2020
Security Cooperaton (SC) r
The Department of Defense (DOD) uses the term security
cooperation (SC) to refer broadly to DOD interactions with
foreign security establishments. SC activities include
* transferring defense articles and services,
* military-to-military exercises,
* ministerial advising, and
* train and equip programs.
SC programs are intended to encourage and enable partner
nations (PNs) to work with the United States to achieve
strategic objectives. They are considered a key tool for
achieving U.S. national security and foreign policy
objectives. These activities are executed through both
DOD-managed and -administered SC programs and DOD-
administered State Department (DOS) security assistance
(SA) programs. Those DOS SA programs that DOD
administers are considered an element of SC that is funded
and authorized by DOS. Both types of programs receive
congressional appropriations and are legally authorized
under the Foreign Assistance Act of 1961, as amended, and
the Arms Export Control Act. Beyond SC grant programs,
SC encompasses the Foreign Military Sales program and
enables U.S. and PN collaboration on defense articles.
55C: Policy an,-,d Objectives
DOD SC activities aim to achieve particular objectives in
support of U.S. national security and defense strategies.
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 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 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.
SC: Roses and Rsosblte
Many SC activities require DOD to coordinate with
multiple DOD components and other U.S. agencies,
primarily DOS. Some DOD SC activities require varying
levels of coordination with DOS. Within DOD, the
Undersecretary of Defense for Policy (USD[P]) exercises
overall direction, authority, and control over SC matters.
The Defense Security Cooperation Agency (DSCA)
represents the interests of the Secretary of Defense and
USD(P) in SC matters and is tasked with directing,
administering, and executing DSCA-managed SC
programs, developing SC policies, and providing DOD-
wide SC guidance. DSCA is also DOD's main interlocutor
between the PNs, the military departments, implementing
agencies, and the defense industry. The Assistant Secretary
of Defense for Special Operations and Low-Intensity
Conflict (ASD-SO/LIC) oversees and approves some SC
training activities that are managed by DSCA. U.S. Special
Operations Command (SOCOM) coordinates those SC
activities executed by special operations forces (SOF). DOS
leads U.S. foreign aid and retains statutory responsibility
for SA. DOS's Bureau of Political-Military Affairs (PM) is
the principal link to DOD and works to ensure that SA is
integrated with other U.S. policies and activities at the
country, regional, and global levels. PM also determines PN
eligibility, appropriate SA programs, and which defense
articles and equipment are permitted for transfer.
Figure I. SC Budget Categories, by Organization
FY2021 Request Tota: $7,591.4 million
CATEGORIES FY21 REQUEST,$ IN MiLLiONS
i1} Mul-to-Mul
Engagements INY19.2
(2) Training with
Fofeign Forces
(3)Support to
Operations
(4) Capacity
Buiding
(5 )Educational
Training Act,
(6) Magmt., Infra. &
workforce
17) Humanitarian &
Assist. Activities
8y parftnes Sec.
Forces Funds
~A§~WY
~ §1>
VisA S
NAVY 1.2
~nnn~
... .. ... .. .. ... .. ..
.:...-A
Source: CRS. Data from DSCA SC Budget Display, FY2021.
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