How a security cooperation organization plans

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1. Planning as a core duty

The responsibility of a security cooperation organization (SCO) to evaluate partner nation capabilities and plan to meet requirements is set out in section 515(a) of the Foreign Assistance Act (SAMM C2.1.3.1). The Security Assistance Management Manual ties that duty to the military assistance planning and budget cycles of both the Defense Department and the State Department. This piece follows the plans and budget requests the SCO feeds into. What the office is and how it is organized is covered in the security cooperation organization.

2. The theater campaign plan and the country plan

A Theater Campaign Plan (TCP) implements the combatant commander’s theater strategy (SAMM C2.1.3.2). It gives one framework for security cooperation activities, ongoing operations and early shaping activities in contingency plans. It also informs and synchronizes the planning of subordinate and supporting organizations toward the end states in the Defense Department’s Guidance for the Employment of the Force. The security cooperation parts of the plan are directed by the combatant command’s J5 staff, typically through regional and country-focused working groups. The SCO, the senior defense official or defense attache, and Defense Department and interagency representatives take part.

SCOs focus on the country-specific part of the plan, commonly called the Country Plan (SAMM C2.1.3.2.1). It sets the combatant commander’s near and mid-term objectives and desired end states for security cooperation with a country, and the methods to reach them. Combatant commands and other Defense Department agencies use country plans when preparing input to Foreign Military Financing (FMF) and International Military Education and Training (IMET) budget requests. They also use them in choosing activities and projects to support with Title 10 funds.

SCOs shape country plans through regular contact with the J5 country desk officers and through the working groups held during the year (SAMM C2.1.3.2.2). A firm grasp of the TCP helps the SCO advocate Defense Department priorities to the embassy country team and the partner nation. It also helps in planning and budgeting resources for the plan’s country objectives. Ideally, the command’s planning events are timed so that SCOs are ready to contribute to the Chief of Mission’s resource plan.

3. The embassy’s strategy and resource request

The Integrated Country Strategy (ICS) is the four-year strategy setting American priorities in a country, and it is led by the Chief of Mission (SAMM C2.1.3.3). It develops common mission goals and objectives through planning among State and the other government agencies with programs in the country. Higher-level documents inform it, including the National Security Strategy, the National Defense Strategy and the joint strategic plan of State and the United States Agency for International Development (USAID). Once approved by the Chief of Mission, the strategy goes to State and interagency review, and it frames the annual Mission Resource Request (MRR) (SAMM C2.1.3.3.1).

For countries eligible for foreign aid, including military assistance, the annual MRR is the first step in the State and USAID budget process (SAMM C2.1.3.3.2). Each mission uses it to describe the diplomatic engagement and foreign assistance resources needed to advance its objectives. The manual calls the SCO chief’s part in the strategy and the request key to securing the Chief of Mission’s support for any Title 22 funded activity the Defense Department carries out with the partner (SAMM C2.1.3.3.3).

4. Requesting grant aid

For partner nations receiving American military grant aid, the SCO submits annual FMF and IMET budget requests, prepared together with the combatant command staff (SAMM C2.1.3.4). Defense Department representatives use these requests and their justifications in State-led interagency discussions, late in the development of the State budget (SAMM C2.1.3.4.1). Proposals that are not consistent with the Chief of Mission’s strategy and resource request risk being left out of the final budget.

Submissions are unconstrained (SAMM C2.1.3.4.2). The SCO includes all the partner’s identified requirements, whatever the country’s past allocations. The combatant command may keep the full request in the automated system, so that every Defense Department and State participant in the allocation process can see it. Listing every requirement also sets priorities and alternatives in case more funds become available.

FMF grant funds are obligated on apportionment and stay available in the country’s trust account indefinitely (SAMM C2.1.3.4.3). Even so, annual budget submissions must explain any build-up of uncommitted funds, which can weaken the case for future FMF. SCOs are expected to manage programs so that uncommitted funds do not accumulate. The SCO also gives input to two sales forecasts, the Javits Report led by State and the Foreign Military Sales Forecast Report led by the Defense Security Cooperation Agency (SAMM C2.1.3.5). Both are covered in the FMS forecast and the Javits report.

5. Advising the partner without promising

Whenever possible, the SCO helps the partner nation with strategic planning, and informs its decisions on buying American equipment, training and services (SAMM C2.1.3.6.1). It encourages equipment and training suited to the partner’s strategic environment, technical capability and ability to afford and maintain it.

SCOs must avoid creating false impressions that the government is ready to provide materiel, technology or information (SAMM C2.1.3.6.2). Without specific authority, only information cleared for public release may be shared. Planning that might lead to disclosure of military information must be coordinated with a designated disclosure official. Partner representatives must understand and acknowledge that no American commitment to furnish information or materiel exists until disclosure is approved (SAMM C2.1.3.6.2). SCOs must also avoid suggesting that funds or other support will be provided before official approval arrives through government channels.

Disclosure of classified information about defense articles and services is decided case by case under National Disclosure Policy and related directives (SAMM C2.1.3.6.3). Designated foreign disclosure officials in the military departments and defense agencies must authorize disclosure of their own information. SCOs must also know every agreement, treaty and diplomatic exchange with the partner that relates to security assistance (SAMM C2.1.3.6.4).

Key terms

Theater Campaign Plan (TCP)	The combatant commander’s plan that integrates security cooperation with other theater activities.
Country Plan	The country part of the theater plan, with objectives, end states and methods.
Integrated Country Strategy (ICS)	The four-year strategy for a country, led by the Chief of Mission.
Mission Resource Request (MRR)	The annual embassy request that starts the State and USAID budget process.
Unconstrained submission	A budget request listing all partner requirements, regardless of past allocations.
Uncommitted funds	Grant money sitting in a trust account without a commitment, which must be explained.

Every statement above links to the document behind it. The full source list for this piece is on the sources page.

This page describes public United States government programs for general information. It is not legal, regulatory or procurement advice, and it does not address the facts of any particular case.

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