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Congressional Research Service
Informing the legislative debate since 1914
June 9, 2023
Defense Primer: International Armaments Cooperation
Wh at is I nt ernration al A rm ame nts
C ooperation?
International armaments cooperation (JAC) refers to an
array of research, development, testing, and evaluation
(RDT&E), procurement, and sustainment partnerships
between the U.S. Department of Defense (DOD) and
foreign governments, militaries, or commercial entities.
IAC encompasses a broad array of activities, ranging from
the exchange of basic RDT&E information to multi-billion
dollar joint procurement programs. DOD considers IAC to
be a form of security cooperation intended to accomplish
operational, economic, technological, political, and
industrial objectives.
Legal and Policy Framework
Statutory Authorities
The statutory authorities for IAC activities are contained
within Titles 10 and 22 of the U.S. Code. Title 10, Chapter
138 contains provisions that authorize: international cross-
servicing agreements; international RDT&E agreements
and projects; international acquisition agreements and
projects; international logistic support agreements;
acceptance of foreign financial contributions for
cooperative projects; and international test facility
agreements. Title 22, Chapter 39 contains provisions that
authorize the President to establish international
cooperative projects and enter into international loan
agreements for research and development purposes.
IAC Governance and Stakeholders
DOD Directive 5132.03 establishes policy and
responsibilities relating to security cooperation activities.
The Undersecretary of Defense for Policy is designated as
the principal staff assistant to the Defense Secretary for
overall security cooperation policy and oversight. The
Undersecretary of Defense for Acquisition and Sustainment
(USD (A&S)) is responsible for establish[ing] and
maintain[ing] policies for the effective development of
international acquisition, technology, and logistics
programs, including international armaments cooperation.
The secretaries of the military departments (MILDEPS) are
responsible for conduct[ing] international armaments
cooperation with eligible allied and partner nations.
Each MILDEP has a designated office responsible for
oversight of IAC projects. For the Department of the Army,
this is the Deputy Assistant Secretary of the Army for
Defense Exports and Cooperation (DASA DE&C); for the
Department of the Navy, this is the Navy International
Programs Office (NIPO); and for the Department of the Air
Force, this is the Secretary of the Air Force, International
Affairs (SAF/IA). Within each MILDEP, participating
organizations in IAC projects may include research
laboratories, program offices, and other components of the
RDT&E and acquisition enterprises.
In addition, other organizations in DOD or the U.S.
government may support a particular IAC effort. For
instance, activities involving classified information subject
to foreign disclosure limitations may require the
involvement of the interagency National Disclosure Policy
Committee.
IAC Projects
The scale, objectives, and management of IAC activities
vary considerably. Broadly speaking, DOD and its partners
may initiate an IAC effort through a bilateral or multilateral
agreement (often called a Memorandum of Understanding,
or MOU) that specifies contributions, responsibilities,
participant organizations, and timelines. Unlike Foreign
Military Sales (FMS), IAC activities are not structured
around a buyer-seller relationship. Instead, all participants
typically provide resources (i.e., funds, personnel, facilities,
or information) in return for a share of the project's
outcomes (e.g., new or improved technologies). See Figure
1 below for a notional overview of the process by which an
IAC project is developed and executed.
Figure I. Notional IAC Process
Source: CRS graphic based on analysis of DOD information.
Notes: This process may vary depending on the type of project,
organizations involved, and other considerations.
Within the office of USD (A&S), the Director for
International Cooperation has identified a number of broad
goals for IAC programs, including:
Reducing U.S. RDT&E, procurement, and
sustainment costs;
Enhancing interoperability with allied and partner
militaries;
Improving access to foreign technology and
industrial capacity for the U.S. military and
defense industrial base; and](ViewImageLocal?handle=hein.crs/govelxa0001&div=1&collection=&method=preview&ext=.png&size=3)
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