Afghanistan Security Forces Fund | Defense Security Cooperation Agency

Appendix 8 - Afghanistan Security Forces Fund

ASFF

Title 10

Yes

Title 22

SC or SA

Subject To BPC LOA

Yes

Program Duration

Temporary

Program Authority Status

Expired

Legal Citation

See Section ASFF.8. for listing.

Program Area

Afghanistan Security Forces

Program Use

Provides:

Construction
Equipment
Facility Repair
Funds
Infrastructure Repair
Renovation
Services
Supplies
Training

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Section	Title
1.	Program Description
2.	Program Specific Guidance and Restrictions
3.	Key Stakeholders
4.	Planning
5.	Congressional Notification Requirements
6.	Execution
7.	Reporting Requirements
8.	Legislation and Authorities (if applicable)
9.	Additional Information (if needed)

1. - Program Description

ASFF.1.1. Afghanistan Security Forces Fund. The Afghanistan Security Forces Fund (ASFF) authorized the DoD to train, equip, and provide related assistance to Afghanistan National Defense and Security Forces (ANDSF) from fiscal year (FY) 2006 to FY 2022, but is in the process of reconciling all actions due to program shutdown, which is estimated completed to be in FY 2025. The ANDSF was comprised of the Afghan National Army (ANA), Afghan National Police (ANP), Afghan Air Force (AAF), and Afghan Special Security Forces (ASSF). This authority also provided support to the Afghanistan Local Police (ALP). ASFF contributed to the DoD mission in Afghanistan by supporting the overall ANDSF force structure and operational tempo, with the intent to enable the Afghan government to combat a resilient insurgency and be a reliable counterterrorism partner with the United States. DoD provided assistance to the Afghan forces in the form of training, equipment, supplies, sustainment, infrastructure, advising, and capacity development.

2. - Program Specific Guidance and Restrictions

ASFF.2.1. Any contribution of funding from non-USG sources should be credited to the Afghanistan Security Forces Fund (ASFF) and remain available until expended.

ASFF.2.2. ASFF earmarked funding for the recruitment, integration, retention, training, and treatment of women in the Afghan Security Forces (ASF).

ASFF.2.3. ASFF could provide limited training, equipment, and other assistance that would otherwise be prohibited by 10 U.S.C. 362 (DoD Leahy Law) to a unit of the Afghanistan National Defense and Security Forces (ANDSF) only if the Secretary of Defense (SECDEF) certified to the congressional defense committees that this is crucial to U.S. interests.

ASFF.2.4. At the time construction contracts were awarded, ASFF funds were obligated for supervision, administration, and design costs.

ASFF.2.5. Equipment procured using ASFF, and either not yet transferred or transferred and subsequently returned, may be treated as stocks of the DoD upon written notification to the congressional defense committees.

ASFF.2.6. Golden Sentry End Use Monitoring (EUM) procedures is used to ensure delivery, receipt, and registration of DoD-provided defense articles. See DoD Instruction (DoDI) 4140.66, 7 September 2010 (Incorporating Changes 24 May 2017).

ASFF.2.7. 10 U.S.C. 362 (DoD Leahy Law) applies to activities conducted under this authority unless by exception and upon certification by the SECDEF.

ASFF.2.8. ASFF program management functions must be funded with Service Operations and Maintenance (O&M) funding (Reference: Office of the Under Secretary of Defense (Comptroller) (OUSD(C)) Memo: July 13, 2018, Budget Policy on use of DoD Component Operating Funds in Support of Foreign Security Forces).

ASFF.2.9. Pursuant to the Defense Federal Acquisition Regulation Supplement (DFARS) 215.101-2-70 (a)(2)(iii), the use of lowest price technically acceptable source selection criteria will be avoided, to the maximum extent practicable, for the acquisition of knowledge-based training or logistics services in contingency operations or other operations outside the U.S., including in Afghanistan.

ASFF.2.10. Interim Accounting Solution Application to Afghanistan Security Forces Fund. ASFF is subject to the interim Building Partner Capacity (BPC) Accounting Solution (see Section C15.3.1.1. for general guidance). Implementing Agencies (IAs) work with Army Budget Office (ABO) to determine the funds distribution mechanism for administrative program support costs (e.g. Military Interdepartmental Purchase Requests (MIPRs)) for the ASFF program. Combined Security Transition Command - Afghanistan (CSTC-A) was responsible for developing memoranda of request (MORs) to support the transportation support cases with a line for transportation and packing, crating, and handling (PC&H) costs and submit them to the DSCA. DSCA was responsible for issuing a case identifier (ID) for the IA to develop the Letters of Offer and Acceptance (LOAs). IAs followed the interim accounting solution for all BPC cases used for closeout actions.

3. - Program Key Stakeholders

ASFF.3.1. Combined Security Transition Command – Afghanistan. Combined Security Transition Command - Afghanistan (CSTC-A) served as the requesting authority. CSTC-A identified the requirements and submitted memoranda of request (MORs) to DSCA.

ASFF.3.2. Department of State. Department of State (State) assistance was provided under this authority only with the concurrence of the Secretary of State (SECSTATE).

ASFF.3.3. Commander, United States Central Command. U.S. Central Command (USCENTCOM) endorsed the MORs.

ASFF.3.4. Under Secretary of Defense (Comptroller). Under Secretary of Defense (Comptroller) coordinated the Afghanistan Security Forces Fund (ASFF) Financial and Activity Plan and submitted the program Congressional Notifications.

ASFF.3.5. Defense Security Cooperation Agency. DSCA (Office of Business Operations, Comptroller Directorate (OBO/CMP)) accepted funds allotments to support Building Partner Capacity (BPC) case development. DSCA (Office of International Operations, Regional Execution Directorate, CENTCOM Division (IOPS/REX/CCOM)) provided programmatic oversight.

ASFF.3.6. Implementing Agencies. Implementing Agencies (IAs) reviewed MOR during feasibility review and Price and Availability response. Oversees case development (modifications and amendments to assist in program closure) and executes all requirements for the MOR.

4. - Program Planning

ASFF.4.1. Budget Development. The Office of the Under Secretary of Defense (Comptroller) (OUSD(C)) coordinated the Afghanistan Security Forces Fund (ASFF) Financial and Activity Plan (FAP) for approval by the Afghanistan Resources Oversight Council (AROC). The AROC was composed of Principal Deputy Under Secretaries for Office of the Under Secretary of Defense for Policy (OUSD(P)), Office of the Under Secretary of Defense for Acquisition and Sustainment (OUSD((A&S)), and OUSD(C), as well as senior representatives from the Joint Staff (JS), U.S. Central Command (USCENTCOM), and the Office of the Assistant Secretary of the Army (Financial Management and Comptroller). Upon AROC approval, the OUSD(C) then coordinated the ASFF FAP with the Department of State (State) and submitted the program Congressional Notification (CN) by Budget/Sub-budget Activity Groups. Only a portion of ASFF was used to fund Building Partner Capacity (BPC) cases. The Army provided the fund allotments for the BPC cases to DSCA.

ASFF.4.2. OUSD(C) and OUSD(P) Special Operations/Low-Intensity Conflict (SO/LIC) coordinated with DSCA and State prior to the required 15-day CN.

ASFF.4.3. Memorandum of Request. As the DoD requesting authority, Combined Security Transition Command - Afghanistan (CSTC-A) submitted proposals and requirements for defense articles and services to OSD to begin the CN preparation process. (See Figure ASFF.F1.).

Figure ASFF.F1. - Afghanistan Security Forces Fund Memorandum of Request Template

NOTICE:

This is a sample template. Memorandum of request (MOR) developers are to replace [RED TEXT] with relevant information pertaining to this MOR.
Classification marking are for example only. Template contains no classified information.

Memorandum Of Request Template

CLASSIFICATION - UNCLASSIFIED//FOR OFFICIAL USE ONLY

Combined Security Transition Command - Afghanistan (CSTC-A) LETTERHEAD

[DATE]

[OFFICE]

MEMORANDUM THRU [OFFICE]

MEMORANDUM FOR [OFFICE]

SUBJECT: Memorandum of Request (MOR) [MOR NUMBER] to establish a Foreign Military Sales case to support [SUMMARY OF THIS MOR].

PURPOSE: [STATED REASON FOR MOR].
DISCUSSION:
1. [CASE REQUIREMENTS]
2. [COST RATIONAL]
3. [REASON FOR CASE ESTABLISHMENT]
COSTING:
1. Table 3.1
  National Stock Number
  Nomenclature
  Quantity (QTY)
  Cost
2. Table 3.2

MOR NUMBER	ABOVE THE LINE		BELOW THE LINE		MOR Total Case Value
MOR NUMBER	BASIC COST	Contract Administrative Services 0%	ADMIN 3.2%	TRANS 0%	MOR Total Case Value

Reference: [ADDITIONAL REFERENCE IF NEEDED FOR COMPLETE EQUIPMENT LISTING, QTY AND COST]
Request the release of [ABOVE EQUIPMENT FOR RECIPIENT AS AMOUNT STATED IN TABLE 3.1].
IMPACT IF NOT SUPPORTED: [SUMMARY OF NEGATIVE IMPACTS]
REQUIREMENT DELIVERY DATE: [DATE]
RECOMMENDATION: [ACTION RECOMMENDATION FOR MOR]
FUNDING REQUESTED: [FISCAL YEAR (FY) AFGHANISTAN SECURITY FORCES FUND]
VALIDATION: [EQUIPMENT/SERVICES PRICE VALIDATION]
TOTAL COMBINED VALUE: [STATEMENT THAT TOTAL CASE VALUE (TCV) CANNOT EXCEED TCV FROM TABLE 3.2 WITHOUT AUTHORIZATION]
DELIVERY LOCATION: [NONE OR ADDRESS]
REQUIREMENT POC: [NAME, TITLE, E-MAIL, PHONE, DSN]
MOR POC: [NAME, TITLE, E-MAIL, PHONE, DSN]
DSCA POC: [NAME, TITLE, E-MAIL, PHONE, DSN]
VALIDATING SIGNATURES: The below signatures certify this requirement as valid
[Digital Signature]

[Digital Signature]
[Name/Title]

[Name/Title]
[Date]

[Date]

ENCLOSURES:

Letter of Justification
Independent Government Cost Estimate
MOR Calculator
Legal Review

DISTRIBUTION:

[OFFICE, ATTN: NAME, EMAIL]
[OFFICE, ATTN: NAME, EMAIL]

CLASSIFICATION - UNCLASSIFIED//FOR OFFICIAL USE ONLY

5. - Program CN Requirements

ASFF.5.1. New Projects. Congressional defense committees had to be notified in writing fifteen days prior to obligation of any Afghanistan Security Forces Funds (ASFF) funds or any proposed new projects or transfer of funds between budget sub-activity groups in excess of $20M. Funds were not to be obligated or transferred until five days after the date on which the Secretary of Defense (SECDEF) notified the congressional defense committees in writing of the details of the proposed obligation or transfer.

ASFF.5.2. Partner Contributions. Congressional defense committees had to be notified upon the receipt and upon the obligation of any non-USG contribution to ASFF, delineating the sources and amounts of the funds received and the specific use of such contributions.

6. - Program Execution

ASFF.6.1. After the 15-day period, Army Budget Office (ABO) or Assistant Secretary of the Army Financial Management & Comptroller released Afghanistan Security Forces Fund (ASFF) funding to DSCA or Combined Security Transition Command - Afghanistan (CSTC-A) management for obligation.

ASFF.6.2. DSCA and the security cooperation (SC) community used the Building Partner Capacity (BPC) Letter of Offer and Acceptance (LOA) case development and execution procedures outlined in Chapter 15 for the management of any defense articles and services provided using ASFF. DSCA administered the requirements for BPC LOA for execution by tasking the applicable Implementing Agency (IA), normally the Military Departments (MILDEPS). The DSCA Country Portfolio Director (CPD) was the DSCA point of contact.

7. - Program Reporting Requirements

ASFF.7.1. Annual Reports. Not later than 30 days after the end of each fiscal year, the Secretary of Defense (SECDEF) was required to submit to the congressional defense committees a report summarizing the details of any obligation or transfer of funds from the Afghanistan Security Forces Fund (ASFF) during the fiscal year. Input was required to a larger annual report to the appropriate congressional committees that includes information on costs, purpose, Benefitting Partner participation, and benefits of the activities undertaken.

ASFF.7.2. Equipment Acceptance Reports. Every 90-days when the ASFF authority was used, the SECDEF was required to provide to the congressional defense committees a report describing the equipment accepted during the preceding 90-day period. Each report included a list of all equipment that was accepted and treated as stocks and includes copies of the Commander of U.S. forces in Afghanistan’s determination that the equipment is no longer required or was damaged before transfer. The Commander of U.S. forces in Afghanistan had to consider alternatives to SECDEF acceptance of the equipment and an explanation of the determination and the alternatives were included in the 90-day report.

ASFF.7.3. Assessment of Progress. No later than May 1 each year, the SECDEF, in consultation with the Secretary of State (SECSTATE), was required to submit to congressional defense committees an assessment describing the progress of the Government of the Islamic Republic of Afghanistan toward meeting shared security objectives. The assessment also included the efforts of the Government of Afghanistan to manage, employ, and sustain the equipment and inventory provided.

ASFF.7.4. Mandatory Elements in the Assessment of Progress Report. The assessment by the SECDEF had to include sections to address each of the following elements:

The extent to which the Government of Afghanistan has a strategy for, and has taken steps toward, increased accountability and the reduction of corruption within the Ministry of Defense (MoD) and the Ministry of Interior (MOI) of Afghanistan.
The extent to which the capability and capacity of the Afghan National Defense and Security Forces (ANDSF) have improved as a result of ASFF investment, including through training, and an articulation of the metrics used to assess improvements.
The extent to which the ANDSF have been able to increase pressure on the Taliban, al-Qaeda, the Haqqani network, and other terrorist organizations, including by re-taking territory, defending territory, and disrupting attacks.
The distribution practices of the ANDSF and whether the Government of Afghanistan is ensuring that supplies, equipment, and weaponry supplied by the U.S. are appropriately distributed to, and employed by, security forces charged with fighting the Taliban and other terrorist organizations.
The extent to which the Government of Afghanistan has designated the appropriate staff, prioritized the development of relevant processes, and provided or requested the allocation of resources necessary to support a peace and reconciliation process in Afghanistan.
A description of the ability of the MoD and the MoI of Afghanistan to manage and account for previously divested equipment, including a description of any vulnerabilities or weaknesses of the internal controls of such MoD and MoI and any plan in place to address shortfalls.
A description of the monitoring and evaluation systems in place to ensure assistance provided by the ASFF authority is used only for the intended purposes.
A description of any significant irregularities in the divestment of equipment to the ANDSF during the prior five-year period including any major losses of equipment or any inability on the part of the ANDSF to account for provided equipment.
A description of the sustainment and maintenance costs required during the prior five-year period for major weapons platforms previously divested, and a plan for how the ANDSF intends to maintain these platforms in the future.
The extent to which the Government of Afghanistan is adhering to conditions for receiving assistance established in annual financial commitment letters or any other bilateral agreements with the United States.
A consideration of the extent to which the Government of Afghanistan has made progress in achieving security sector benchmarks as outlined by the U.S.-Afghan Compact (commonly known as the “Kabul Compact”).
Any other factors the Secretaries of Defense and State consider appropriate.

ASFF.7.5. Leahy Law Exception. If ASFF was used to provide assistance to units otherwise prohibited by 10 U.S.C. 362, SECDEF provided a report describing:

The information relating to the gross violation of human rights;
The circumstances that necessitated the provision of such assistance;
The Afghan security force unit involved;
The assistance provided and the assistance withheld; and
The corrective steps to be taken by the Government of Afghanistan.

ASFF.7.6. Every 120 days after the initial report, an additional report submitted by SECDEF detailing the status of any corrective steps taken by the Government of Afghanistan.

ASFF.7.7. Foreign Military Training Report. All training conducted under ASFF was subject to inclusion in the annual Foreign Military Training Report (FMTR). See Section C10.21.2. for more information.

8. - Program Legislation and Authorities

Afghanistan Security Forces Fund (ASFF)

Program Code	Program Authority	Purpose	Fund Source (DoD or FAA Sec 632(b) MOA)	Appropriation Authority	Funds Availability Ends on September 30 ^{Unless Otherwise Noted}	Funds Cancel on September 30
B2	P.L. 109-163	Provide assistance to the Afghanistan national security forces	21 6/7 2091	P.L. 109-234 FY06	2007	2012
B6	P.L. 109-364		21 7/8 2091	P.L. 109-289 and P.L. 110-28 FY07	2008	2013
E3	P.L. 110-181		21 8/9 2091	P.L. 110-161 and P.L. 110-252 FY08	2009	2014
E5	P.L. 110-181		21 9 2191	P.L. 110-252 FY09	2009	2014
E6	P.L. 110-417		21 9/10 2091	P.L. 111-32 FY09	2010	2015
G5	P.L. 111-84		21 10/11 2091	P.L. 111-118 and P.L. 111-212 FY10	2011	2016
G6	P.L. 111-383		21 11/12 2091	PL. 112-10 FY11	2012	2017
H5	P.L. 112-81		21 12/13 2091 (Army)	P.L. 112-74 FY12	2013	2018
H9	P.L. 112-239		21 13/14 2091	P.L. 113-6 FY13	2014	2019
J3	P.L. 113-66		21 14/15 2091	P.L. 113-76 FY14	2015	2020
J8	P.L. 113-291		21 15/16 2091	P.L. 113-235 FY15	2016	2021
V3	P.L. 114-92		21 16/17 2091	P.L. 114-113 FY16	2017	2022
W5	P.L. 114-328		21 17/18 2091	P.L. 115-31 FY17	2018	2023
7H	P.L. 115-91		21 18/19 2091	P.L. 115-141 FY18	2019	2024
QB	P.L. 115-232		21 19/20 2091	P.L. 115-245 FY19	2020	2025
BS	P.L. 115-232		21 20/21 2091	P.L. 116-93 FY20	2021	2026
EM	P.L. 115-232		21 21/22 2091	P.L. 116-260 FY21	2022	2027
EX	P.L. 115-232		2122/23/24/25 2091	P.L. 117-180	2025	2030

Afghanistan Security Forces Fund (ASFF)/CTRB

Program Code	Program Authority	Purpose	Fund Source (DoD or FAA Sec 632(b) MOA)	Appropriation Authority	Funds Availability Ends on September 30 ^{Unless Otherwise Noted}	Funds Cancel on September 30
C5	P.L. 111-212 as amended by P.L. 111-84	Provide assistance to Afghanistan national security forces	21 X 2091 FY11	P.L. 111-212 FY11	N/A	N/A
	P.L. 111-212 as amended by P.L. 112-239		21 X 2091 FY13	P.L. 113-6 FY13	N/A	N/A
	P.L. 111-212 as amended by P.L. 113-66		21 X 2091 FY14	P.L. 113-76 FY14	N/A	N/A
	P.L. 111-212 as amended by P.L. 113-291		21 X 2091 FY15	P.L. 113-235 FY15	N/A	N/A
	P.L. 111-212 as amended by P.L. 114-92		21 X 2091 FY16	P.L. 114-113 FY16	N/A	N/A
	P.L. 111-212 as amended by P.L. 114-328		21 X 2091 FY17	P.L. 115-31 FY17	N/A	N/A
	P.L. 111-212 as amended by P.L. 115-91		21 X 2091 FY18	P.L. 115-141 FY18	N/A	N/A
	P.L. 111-212 as amended by P.L. 115-232		21 X 2091 FY19	P.L. 115-245 FY19	N/A	N/A
	P.L. 111-212 as amended by P.L. 115-232		21 X 2091 FY20	P.L. 116-59 FY20	N/A	N/A

9. - Program Additional Information

ASFF.9.1. N/A