Who does what on a capacity building program

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1. Many hands on one program

Building Partner Capacity (BPC) programs pass through several organizations, and the Security Assistance Management Manual (SAMM) summarizes the role of each one (SAMM C15.1.6). The roles cover planning, development, execution and management. What a BPC program is and how it differs from a sale is covered in what Building Partner Capacity is. This piece sets out who holds the money, who sets the requirement and who carries out the work.

2. The Funding Authority and the Requesting Authority

The Funding Authority administers the program money and exercises management oversight of program requirements (SAMM C15.1.6.1). The Defense Security Cooperation Agency (DSCA), a military department or the Office of the Under Secretary of Defense for Policy fills that role once an appropriation is received. Agencies outside the Defense Department are the Funding Authority for money they provide to DSCA under the Economy Act or section 632(b) of the Foreign Assistance Act.

The Requesting Authority (RA) plans and monitors the execution of capacity building activities (SAMM C15.1.6.2). For Title 10 authorities, the geographic Combatant Commands (CCMDs) serve as RAs. The RA sends detailed requirements to DSCA and the implementing agency (IA) in a pre-planning document, such as a Memorandum of Request or a Training and Equipment List. It must make sure the IA has what it needs to develop the case or training grant. It must also approve any substitution or adjustment needed when an article cannot be bought within cost in time to obligate expiring funds.

3. The State Department and the Policy office

The Bureau of Political-Military Affairs at the State Department negotiates and concludes section 505 agreements with partners receiving American grant assistance (SAMM C15.1.6.3). Section 505 of the Foreign Assistance Act requires such an agreement from any partner receiving assistance under that Act. The requirement extends to some Title 10 authorities as a matter of law, such as 10 U.S.C. 331 and 333, and to others as a matter of policy. The bureau also reviews every BPC case and training grant for alignment with foreign policy, and approves each one on a daily list sent by DSCA.

The Under Secretary of Defense for Policy oversees strategic policy, guidance and overall resource allocation for security cooperation funded through Defense-wide operation and maintenance money allocated to DSCA (SAMM C15.1.6.4). The Secretary of Defense assigned that responsibility under 10 U.S.C. 382(a). Priorities are set through the Significant Security Cooperation Initiative planning process. The geographic CCMDs develop the initiatives, design documents, monitoring plans and five-year plans, with help from DSCA, the Joint Staff and policy offices. An executive council reviews and prioritizes them and recommends how resources should be allocated. The same office decides on redirecting Title 10 funded assistance.

4. DSCA and the Comptroller

DSCA guides Defense components, Security Cooperation Organizations (SCOs) and IAs on developing, administering and executing BPC activities (SAMM C15.1.6.4.1). Its guidance runs from the pre-planning documents and feasibility work through case development and closure. The military department IAs keep primary responsibility for preparing and executing cases and training grants, although in specific circumstances DSCA acts as the IA for direct-funded programs. DSCA also oversees program-level logistics planning, manages program finances, monitors obligations and deliveries, and handles certain reports and notifications to Congress. It maintains the data systems of record for sales and BPC programs.

The Office of the Under Secretary of Defense (Comptroller) sets and updates guidance on the use of Defense funds (SAMM C15.1.6.5). For selected authorities, it reviews congressional notification packages and passes them to the legislative affairs office for the committees. It authorizes the release of funds for BPC programs and reports to Congress on how they are used.

5. The Combatant Command and the embassy office

Each geographic CCMD plans security cooperation activities for its region over several years, in the security cooperation annex of its campaign plan and the country appendices (SAMM C15.1.6.6). It is the RA for Title 10 resources controlled by the Policy office, and generates its demand signal through the initiative documents. For Title 22 funded BPC, the State Department is the RA and sends solicitations to the SCOs each year. The CCMD also reviews shipment tracking records twice a year, checking that transfer documents are uploaded within 30 days of title transfer, and tells DSCA if they are not.

The SCO supports the RA through every phase, from planning to the transfer of equipment or services, and works closely with the partner’s security forces (SAMM C15.1.6.6.1). It communicates program objectives to the partner, gathers information from it, and is ultimately responsible for tracking and reporting all BPC assistance back to DSCA. The manual’s table of SCO duties is specific. The office keeps a copy of the section 505 agreement and records of notifications and case documents. It gets approval for country team assessments for night vision devices and other controlled articles, which are needed before a notification is staffed.

The table continues through training and delivery (SAMM C15.1.6.6.1). The SCO enters student details into the training management system before training starts, and supplies shipping codes for the pre-planning documents. It obtains the partner’s signed physical security and accountability plan as DSCA requests, and no later than 30 days before delivery of any materiel subject to enhanced end-use monitoring. It prepares the transfer and receipt document, gets the partner’s signature, and uploads the transfer documents within 30 days of title transfer. How that handover works is covered in handing over capacity building equipment.

6. The implementing agency and transportation

The IA has overall responsibility for developing the case or training grant, obligating funds on time, executing it and closing it (SAMM C15.1.6.7). It keeps in frequent contact with DSCA program directors, the RA, the procuring office, the transportation command and the SCO. It confirms the pre-planning document is complete before starting a case in the BPC module of the Defense Security Assistance Management System. It must also understand the limits of the appropriated funds, so that obligation, expiration and cancellation deadlines are met.

The IA is responsible for getting materiel transported and delivered to the SCO, but the United States Transportation Command (USTRANSCOM) manages the Defense Transportation System that moves it (SAMM C15.1.6.8). Where materiel arrives at a central port of debarkation in theater, USTRANSCOM may work with the CCMD to move it onward, depending on the delivery term code on the case. If articles do not appear in a tracking system, the SCO may contact the port or the command’s distribution operations center to find their status.

Key terms

Funding Authority	The organization that administers program money and oversees program requirements.
Requesting Authority	The organization that plans and monitors capacity building activities, usually a Combatant Command.
Section 505 agreement	The agreement a partner signs to receive assistance under the Foreign Assistance Act.
Memorandum of Request	A pre-planning document setting out a program’s detailed requirements.
Transfer and receipt document	The record, signed by the partner, of when, where and to whom materiel was delivered.

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.

How Sentfore supports this

Equipment delivered under these programs still has to reach the partner safely. Sentfore works at the delivery end of defense programs in difficult environments, providing secure movement, protective security, facilities and life support. Requirements can be sent through the contact page.