Offices and People · 1 of 3
Every partner government dealing with the American defense system deals first with a small office inside an embassy. The name varies and the function does not. "The generic term Security Cooperation Organization (SCO) encompasses all DoD elements, regardless of actual title, located in a foreign country to carry out security cooperation (SC) and SA management functions under the FAA and the Arms Export Control Act (AECA) of 1976, as amended (22 U.S.C. 2751)" (SAMM C2.1.1.1).
It exists because a statute says it may. Section 515(a) of the Foreign Assistance Act "authorizes the President to assign U.S. military personnel overseas to manage security assistance (SA) programs administered by the DoD" (SAMM C2.1.1.1). Beyond that statutory work, the office also runs departmental programs under the guidance of the regional combatant command.
It is headed by a figure who holds three hats at once. A directive "creates the position of Senior Defense Official/Defense Attaché (SDO/DATT) as the principal DoD official in U.S. embassies and establishes the SDO/DATT as the diplomatically accredited defense attaché and chief of the SCO" (SAMM C2.1.1.2). That person advances foreign policy under the ambassador while promoting the combatant commander's campaign objectives.
The office answers upward in two directions, and the split explains a great deal of what a partner ministry experiences as slowness.
One line runs through the embassy. "The SCO falls under the direction and supervision of the U.S. Chief of Mission (COM)", and the chief's ability to work with the ambassador and the rest of the country team "is critical to DoD success in synchronizing priorities and efforts with other agencies" (SAMM C2.1.2.1).
The other runs through the military. "The SCO falls under the command and supervision of the CCDR in matters that are not functions or responsibilities of the COM" (SAMM C2.1.2.2). The head of the office is expected to keep the two consistent, ensuring "compatibility of DoD and Department of State (State) policies" and promoting complementary use of resources.
A third relationship is with the partner itself, and the manual sets a real standard for it. Staff "must understand partner nation national and military objectives and strategies, be familiar with partner nation capabilities and requirements, and have access to appropriate partner nation counterparts and leaders" (SAMM C2.1.2.3). Access is listed as a requirement, not a courtesy.
A fourth is with suppliers, stated with unusual frankness: "It is in the U.S. national security and economic interests that if a country intends to purchase a defense article it be of U.S. origin. Consequently, SCOs provide assistance to U.S. companies while maintaining strict neutrality among U.S. competitors" (SAMM C2.1.2.4). What that support looks like is set out in what the office does for industry.
Staffing is controlled centrally and funded by a rule that surprises people. "In accordance with DoDI 5132.13, the Director, DSCA, in coordination with the CCDRs and the Chairman of the Joint Chiefs of Staff (CJCS), has approval authority for establishing SCOs and for making staffing changes" (SAMM C2.1.10.2.1).
The mix of people is wider than the uniform suggests. "SCOs are staffed by U.S. military, U.S. civilians, and LE Staff" (SAMM C2.1.10.2.2). Locally employed staff are of two kinds. Foreign service nationals need an embassy approval process and appear on the command's staffing tables. Personal services hires may be host nation or third country nationals, eligible family members of embassy staff, or Americans living in the country outside government service.
Which budget pays follows a percentage test. "As a general rule, if the duties associated with a position require an employee to spend more than 50 percent of his/her time performing SA management activities, the position must be State funded" (SAMM C2.1.10.2.3). Where more than half the time goes on other work, the position is funded from departmental money instead. The office head reviews the split periodically and submits change requests.
Changing the shape of the office is not a defense department decision alone. Staff serve under the ambassador's authority. The command must therefore obtain approval from both the ambassador and the state department to create new positions, to change the size or composition of the office, or to make "significant changes to the scope of SCO responsibilities" (SAMM C2.1.10.2.4).
A partner starting a large program often asks for more people, and there is a mechanism. "The CCDR may temporarily assign personnel to a SCO when new or additional SA and SC requirements detract from permanently assigned SCO personnel performing their primary SA management duties" (SAMM C2.1.10.2.5).
The same paragraph closes a door. "Permanently assigned SCO personnel should not be dedicated to a single project for which the host nation should be responsible, such as the establishment and management of a logistics center" (SAMM C2.1.10.2.5). A ministry hoping to borrow an American officer to run a function of its own is asking for something the manual rules out.
The administrative load is heavier than the strategic description implies, and a tri-service regulation sets it out. The duties run from supervising reports and correspondence and managing the office budget, through fiscal accountability, personnel supervision, professional development, property and vehicles and the network, to visitor support and escort (SAMM C2.1.10.1). Two of them matter directly to a partner ministry.
The first is representation. The office performs "all DoD representational and liaison activities with the host nation defense and security establishments," attends host nation ceremonies, observes exercises, assists with embassy protocol and stands in for the ambassador when tasked (SAMM C2.1.10.1.9).
The second is language, and it carries a legal edge. "The host nation is responsible for translating documents", and the office may supply an informal translation only for communication between officials, marked to say that the English text governs (SAMM C2.1.10.1.11). It must also send a forwarding letter with each contractual document stating that the English is binding, and "Translation assistance is limited to USG and host nation officials" (SAMM C2.1.10.1.11). A translation prepared for a ministry's own contractor is outside what the office may provide.
The office is more than an administrative post. Its "responsibility for evaluating partner nation capabilities and conducting necessary planning to meet requirements is specified in FAA Section 515(a) and is central to the military assistance planning and budget cycles of both DoD and State" (SAMM C2.1.3.1).
The head of the office plays "a central role in SA strategy development and program planning" and an important role in other departmental activity. That work makes sure the activity supports regional and country strategies, suits partner needs and political and cultural sensitivities, and promotes standardization and interoperability with partner forces and with the United States (SAMM C2.1.3.1).
That is the practical reason the relationship matters. The office is the point at which a partner's requirement either enters the American budget cycle or does not. Where the money then comes from is set out in the case manager and the budget cycle.
| SCO | The office in a partner country carrying out security cooperation and assistance management. SAMM C2.1.1.1. |
|---|---|
| SDO/DATT | The senior defense official, defense attaché and head of that office in one person. |
| Chief of Mission | The ambassador, under whose authority the office and its staff serve. |
| LE Staff | Locally employed staff, either foreign service nationals or personal services hires. |
| 50 percent rule | The time test that decides whether a post is funded by the state or defense department. |
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.
The office in country is where a requirement enters the system. Sentfore provides secure transport, protective security, facilities and life support for defense programs in difficult environments. Requirements can be sent through the contact page.