Guide
Who does what in Foreign Military Sales financial management?
Money in a Foreign Military Sale passes through many hands. Congress and the Department of State authorize and oversee the funding; manages the and financial policy; the Defense Finance and Accounting Service accounts for the , bills the purchaser and closes cases; the Implementing Agencies price, execute and reconcile cases; the office is the purchaser's first point of contact; the purchaser budgets and pays; and industry prices, delivers and bills against its contracts.
Who does what in Foreign Military Sales financial management?
The U.S. and financial management responsibilities include the congressional enactment of the required / legislative authorization and appropriation acts. The DOS and DoW coordinate and provide input to Congress in the development and establishment of that legislation. There is extensive financial management involvement and oversight by DOS in fulfillment of that organization’s responsibilities for continuous supervision and general direction of economic assistance, military assistance, military education and training, and sales and export programs.
The Under Secretary of War (Comptroller) is the principal advisor to the Secretary of War on all budgetary and fiscal matters, including the development and execution of the Department of War’s annual budget. As the DoW’s Chief Financial Officer, the Comptroller also oversees the Department’s financial management systems, business modernization efforts, and financial policy. The is issued by the Comptroller under the authority of Instruction 7000.14, “ Financial Management Policy and Procedures.” FMR Volume 15 ( Policy) directs statutory and regulatory financial management requirements, systems, and functions for all appropriated and non-appropriated working capital, revolving, and activities.
The primary functions of the are described in Directive 5105.65. The financial elements of those duties include the management of the , Foreign Military Financing () program, program management, , administrative fund, and numerous programs. In addition, schedules and chairs the Financial Management Reviews, supervises the financial implementation of and cases, and also has waiver authority for most of the -related costs.
The Defense Finance and Accounting Service () headquarters is located in Indianapolis, Indiana, and is the organization responsible for the implementation of all accounting and finance activities within the DoW.
Defense Finance and Accounting Service, Accounting (DFAS-SCA) is the organization that has the following financial responsibilities as they relate to within the DoW:
- Account for the daily operations and funds transfers to and from the
- Issue to certifying officers and disbursing activities for cases and programs
- Operate the computer information system for centralized DoW-wide delivery reporting, collecting, forecasting, and billing for cases and programs
- Perform continuing analysis to ensure sufficient international partner cash is available to pay DoW, military departments (), and DoW procurement vendors
- Prepare, review, and dispatch all billing and statements
- Perform final accounting actions to close cases and render final accounting statements
- Provide assistance to, and interact with, the DoW and regarding logistical and financial systems, projects, policies, and procedures
- Participate with the DoW and as required in reviews within and outside the U.S.
The following types of organizations have a financial role in programs and cases:
- Service headquarters: Review (when required by policy) and provide service-wide policy and oversight (including financial waiver recommendations, case unique payment schedules, etc.).
- Systems, logistics [including the ’s Control Organizations ()], and training commands: Prepare the and data, coordinate as required to acquire and deliver the material and/or services and training on the implemented , maintain detailed case logistics and financial records for accounting and reconciliation, and certify case for closure to .
The Defense Management System () is used by the MILDEP and 's Case Writing and Development Division (IOPS/GEX/CWD) to compute prices and payment schedules. The financial execution and reconciliation, however, is conducted by the and DoW agencies utilizing a variety of computer information systems.
The financial management responsibilities include the following:
- Initial point of contact with international partner for issues and communications
- Support Reviews (i.e., financial, program, reconciliation)
- International Military Education and Training ()—budgeting and execution
- Foreign Military Financing ()—budgeting and execution
- Ensuring that the international partner is aware of U.S. credit financing policies. Any exceptions must be fully justified and submitted through the Chief of the U.S. Mission to for interagency coordination and approval or disapproval.
The international partner also has important financial management responsibilities including the following:
- Budget funds as required
- Timely payment of bills
- Requesting and coordinating with the on any required special financial plans (Interest Bearing Accounts (i.e., Commercial or Federal Reserve Bank), Standby Letter(s) of Credit (), Special Billing Arrangements (), unique case payment schedules, financial waivers, etc.)
- Support Reviews
- Financial Discrepancy Reporting
Companies that provide articles and services per their contract(s) with the have multiple responsibilities including the following:
- Coordinate with on development of and price estimates
- Negotiate and sign contracts for procurement of case materials and services
- Coordinate with Implementing Agencies, contracting officers (i.e., ) and auditors (i.e., ) on delivery of contract materials and/or services in support of the
- Timely and accurate billing to the for work and services performed
References
SAMM
- SAMM C9.1.1
- SAMM C1.3.2.4 — Under Secretary of Defense (Comptroller).
- SAMM C1.3.2.8 — Defense Finance and Accounting Service.
Related
DSCA — Defense Security Cooperation Agency
SAMM Acronyms, as of 12 September 2026
Glossary entry →Defense Security Cooperation Agency (DSCA) →
FMS — Foreign Military Sale
SAMM Acronyms, as of 12 September 2026
Trust Fund
A type of account, designated by law as a “trust fund,” regardless of any other meaning of the term “trust fund.” A trust fund account is usually either a receipt, an expenditure, or a revolving fund account (trust revolving fund account).
SAMM Glossary, as of 12 September 2026
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Security Cooperation
Activities undertaken by the DoD to encourage and enable international partners to work with the United States to achieve strategic objectives. It includes all DoD interactions with foreign defense and security establishments, including all DoD-administered security assistance programs, that: build defense and security relationships that promote specific U.S. security interests, including all international armaments cooperation activities and security assistance activities; develop allied and friendly military capabilities for self-defense and multinational operations; and provide U.S. forces with peacetime and contingency access to host nations.
SAMM Glossary, as of 12 September 2026
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Foreign Military Sales (FMS) Case
A USG Letter of Offer and Acceptance (LOA), and any subsequent Amendment or Modification, that is the legal instrument used by the USG to transfer defense articles and defense services under the FMS program. See also "FMS" and "LOA."
SAMM Glossary, as of 12 September 2026
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Letter of Offer and Acceptance (LOA)
The legal instrument used by the USG to transfer itemized defense articles, defense services, and design and construction services to foreign partners.
When used under the authorities provided in the Arms Export Control Act for Foreign Military Sales, the LOA is a binding agreement signed by the USG and the foreign partner to transfer such articles and services.
When used under Building Partnership Capacity (BPC) authorities, the BPC LOA is not signed by the Benefitting Partner.
SAMM Glossary, as of 12 September 2026
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Security Assistance (SA)
A group of programs authorized by federal statutes by which the United States provides defense articles, military training, and other defense-related services by grant, lease, loan, credit, or cash sales in furtherance of national policies and objectives, and those that are funded and authorized through the Department of State to be administered by Department of Defense/Defense Security Cooperation Agency, which are considered part of security cooperation.
SAMM Glossary, as of 12 September 2026
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USD(C) — Under Secretary of Defense (Comptroller)
SAMM Acronyms, as of 12 September 2026
Defense Security Cooperation Agency (DSCA)
An agency, under the authority, direction, and control of the Under Secretary of Defense for Policy (USD(P)), that directs, administers, and provides DoD-wide guidance to the DoD Components and DoD representatives to U.S. missions abroad for the execution of DoD security assistance and security cooperation programs over which DSCA has responsibility, in accordance with Chapter 32 and Chapter 39 of title 22 U.S.C., DoD Directive (DoDD) 5132.03, other laws, and DoDD 5105.65.
SAMM Glossary, as of 12 September 2026
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Security Cooperation Organization (SCO)
A Department of Defense element that is part of the United States Diplomatic mission located in a foreign country to carry out security assistance and security cooperation management functions under the supervision and coordination authority of the senior defense official/defense attaché.
SAMM Glossary, as of 12 September 2026
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International Military Education And Training (IMET) Program
That component of the U.S. Security Assistance program which provides training to selected foreign military and defense associated civilian personnel on a grant basis. Training is provided at U.S. military facilities and with U.S. Armed Forces in the United States and overseas, and through the use of Mobile Training Teams. Training also may be provided by contract technicians, contractors (including instruction at civilian institutions), or by correspondence courses. The IMET Program is authorized by the Foreign Assistance Act.
SAMM Glossary, as of 12 September 2026
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DFAS-IN — Defense Finance and Accounting Service - Indianapolis
SAMM Acronyms, as of 12 September 2026
Defense Integrated Financial System (DIFS)
A financial system providing DoD-level financial management functions for the security assistance (SA) program. This includes centralized Foreign Military Sales (FMS) trust fund accounting, foreign customer billing, and financial management reporting. DIFS consolidates FMS data from the Army, Navy, Air Force, and other implementing agencies, and provides efficient accountability for oversight of the financial and program management aspects of SA.
SAMM Glossary, as of 12 September 2026
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Holding Account
An account established for each Foreign Military Sales country/international organization for the purpose of recording and safeguarding unidentified and certain earmarked funds for future use
SAMM Glossary, as of 12 September 2026
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LOA — Letter of Offer and Acceptance
SAMM Acronyms, as of 12 September 2026
Implementing Agency (IA)
The military department or defense agency responsible for the execution of military assistance programs. With respect to FMS, the military department or defense agency assigned responsibility by the Defense Security Cooperation Agency to prepare an LOA and to implement an FMS case. The implementing agency is responsible for the overall management of the actions that will result in delivery of the materials or services set forth in the LOA that was accepted by a foreign country or international organization.
SAMM Glossary, as of 12 September 2026
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International Logistics
The planning, negotiating, and implementation of supporting logistics arrangements between nations, their forces and agencies. It includes furnishing logistics support (major end items, materiel, and/or services) to, or receiving logistics support from, one or more friendly foreign governments, international organizations, or military forces, with or without reimbursement. It also includes planning and actions related to the intermeshing of a significant element, activity, or component of the military logistics systems or procedures of the United States with those of one or more foreign governments, international organizations, or military forces on a temporary or permanent basis. International logistics involves planning and actions related to the utilization of U.S. logistics, policies, systems, and/or procedures to meet requirements of one or more foreign governments, international organizations, or forces.
SAMM Glossary, as of 12 September 2026
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ILCO — International Logistics Control Office
SAMM Acronyms, as of 12 September 2026
Glossary entry →International Logistics Control Office (ILCO) →
Price and Availability (P&A)
Implementing Agencies’ (IAs) (Military Department organizations and Defense Agencies) response to requests from a foreign government or international organization (partner) for preliminary pricing and availability for international competitions and requests from authorized USG requesting authorities for building partner capacity. Furnishing of this data does not constitute a commitment for the USG to offer for sale the articles and services for which the data is provided.
SAMM Glossary, as of 12 September 2026
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DSAMS — Defense Security Assistance Management System
SAMM Acronyms, as of 12 September 2026
Glossary entry →Defense Security Assistance Management Systems (DSAMS) →
SCO — Security Cooperation Organization
SAMM Acronyms, as of 12 September 2026
IMET — International Military Education and Training
SAMM Acronyms, as of 12 September 2026
SBLC — Standby Letter of Credit
SAMM Acronyms, as of 12 September 2026
P&A — Price and Availability
SAMM Acronyms, as of 12 September 2026
DCMA — Defense Contract Management Agency
SAMM Acronyms, as of 12 September 2026