-
DEPARTMENT OF THE AIR FORCE
HEADQUARTERS UNITED STATES AIR FORCE
WASHINGTON, DC
MEMORANDUM FOR DISTRBUTION C
DAFI25-301_DAFGM2023-01
18 October 2023
MAJCOMs/FLDCOMs/FOAs/DRUs
FROM: HQ USAF/A4L
1030 Air Force Pentagon
Washington, DC 20330-1030
SUBJECT: Department of the Air Force Guidance Memorandum (DAFGM) to Department of
the Air Force Instruction (DAFI) 25-301, Acquisition and Cross-Service
Agreements.
By Order of the Secretary of the Air Force, this Department of the Air Force Guidance
Memorandum immediately re-designates AFI 25-301, Acquisition and Cross-Service Agreements,
as a Department of the Air Force Instruction (DAFI) and implements changes to DAFI 25-301.
This publication applies to all civilian employees and uniformed members of the Regular Air
Force, the Air Force Reserve, the Air National Guard, the United States Space Force (USSF), the
Civil Air Patrol when conducting missions as the official Air Force Auxiliary, and those with a
contractual obligation to abide by the terms of DAF issuances.. Compliance with this
Memorandum is mandatory.”
It incorporates guidance provided in DAFI 21-150, Aircraft Repairs and Maintenance
Cross-Servicing, updates the requirements for maintenance interoperability, and clarifies the
requirement for Implementing Arrangements in line with the Chairman of the Joint Chief’s
Instruction 2120.01D, Acquisition and Cross-Servicing Agreements.
Ensure all records created as a result of processes prescribed in this publication are
maintained in accordance with AFI 33-322, Records Management and Information Governance
Program, and disposed of in accordance with the Air Force Records Disposition Schedule (RDS)
located in the Air Force Records Management System.
This Memorandum becomes void after one year from the date of this Memorandum,
upon incorporation by interim change, or rewrite of the publication whichever comes soonest.
Digitally signed by
HURRY.LINDA.S.1092664950
.S.1092664950
Date: 2023.08.03 00:20:57
LINDA S. HURRY, Maj Gen, USAF
Director of Logistics, DCS/Logistics,
Engineering & Force Protection
HURRY.LINDA
DAFI25-301_DAFGM2023-01
ATTACHMENT
Interim Guidance to DAFI 25-301, Acquisition and Cross-Servicing Agreements
Title Page (Bottom, Centered)
(Add) THIS PUBLICATION CONTAINS COPYRIGHTED MATERIAL
Opening Paragraph
(Replace) This publication implements Department of the Air Force Policy Directive (DAFPD)
25-3, Allied Logistics Support and DAFPD 21-1, Maintenance of Military Materiel. It provides
guidance and procedures on Acquisition and Cross-Servicing Agreements (ACSAs), the basic
framework and guidance for aircraft repair and maintenance services, a sub-category of logistics
support, supplies, or services, and establishes the mandatory requirement to use the ACSA
Global Automated Tracking and Reporting System (AGATRS) for processing and recording all
official AF ACSA transactions. This publication does not cover agreements with other United
States (US) military services or other government agencies, US or foreign non-military
organizations, or commercial contractors. This publication applies to all civilian employees and
uniformed members of the Regular Air Force, the Air Force Reserve, the Air National Guard, the
United States Space Force (USSF), the Civil Air Patrol when conducting missions as the official
Air Force Auxiliary, and those with a contractual obligation to abide by the terms of DAF
issuances. Refer recommended changes and questions about this publication to the office of
primary responsibility (OPR) using the DAF Form 847, Recommendation for Change of
Publication; route DAF Form 847s from the field through the appropriate functional chain of
command. The authorities to waive wing, unit, and delta level requirements in this publication
are identified with a Tier (“T-0, T-1, T-2, T-3”) number following the compliance statement. See
DAF Manual (DAFMAN) 90-161, Publishing Processes and Procedures, for a description of the
authorities associated with the tier numbers. Submit requests for waivers through the chain of
command to the appropriate tier waiver approval authority. For non-tiered compliance items in
this publication, submit requests to AFDPO Policy Branch (SAF/AAIPX) (SAF.AA.AFDPO-
this publication adhere to AFI 33-322, Records Management and Information Governance
Program, and are disposed in accordance with the Air Force Records Disposition Schedule,
which is located in the Air Force Records Information Management System. The use of the
name or mark of any specific manufacturer, commercial product, commodity, or service in this
publication does not imply endorsement by the AF.
SUMMARY OF CHANGES
(Replace) This rewrite changes AFI 25-301 to DAFI 25-301, adds requirement to appoint a
senior officer from both Logistics and Financial Management functional communities in the
grade of O6/GS-15 or above to oversee the management of the component ACSA program, and
changes the requirement for Implementing Arrangements (IA) between partner nations from
“mandatory” for all aircraft repair and maintenance services to “where required by the terms of
the ACSA or upon request by a partner nation.”
(Replace) 1.1.1. ACSA is primarily a Combatant Command (CCMD) program. USAF Major
Commands (MAJCOM), C-MAJCOMs, USSF Field Commands (FLDCOM) and National
Guard Bureau (NGB), or lower-level components, will execute ACSA programs IAW an
assigned Geographic CCMD or Functional CCMD for Air Mobility Command (AMC) and Air
Force Special Operations Command (AFSOC). See AFI 13-103, Air Component Headquarters
AFFOR Staff Operations, Readiness and Structures, Table 3.1, Air Component Headquarters,
for combatant command and DAF organizational relationships.
(Delete) 1.1.1.1.
(Delete) 1.1.1.2.
(Delete) 1.1.1.3.
(Replace) 1.1.2. Units operating in an AOR as a chopped, transient, or deployed force should
execute ACSA transactions IAW with the deployed installation’s guidance first.
(Add) 1.1.2.1. If an ACSA program manager is not available locally, units will reach-back to
their assigned NAF, MAJCOM, or FLDCOM for support. For example, an AF unit deployed to
Al Udeid AB should execute ACSA transactions using the 379 Air Expeditionary Wing (AEW)
ACSA program (AFCENT-USCENTCOM).
(Add) 1.1.2.2. USSF personnel will manage ACSA orders through United States Space
Command (USSPACECOM) who will coordinate with the Geographic Combatant Command
where operations are required.
(Replace) 1.2.1. AGATRS will be used by all DAF units, as directed by MAJCOM, FLDCOM,
Numbered Air Force (NAF), or CCMD Service Component; to create, record, track, report on,
and otherwise manage ACSA transactions. (T-0).
(Replace) 1.3. Eligible Foreign Nations. Only foreign militaries and international organizations
with which the US has concluded ACSAs are eligible for cross-servicing (acquisition and sale or
transfer of LSSS) using ACSA authority. Eligible countries and international organizations from
which the US may acquire LSSS under the acquisition-only authority are those that meet the
criteria in paragraph 4.2 of DoDD 2010.9.
(Replace) 1.3.1. Negotiation and conclusion of ACSAs must be accomplished per AFI 51-403,
International Agreements and DoDD 5530.03, International Agreements. Note: A list of current
ACSAs and IAs can be downloaded from the Joint Staff J-4 intellipedia site
(https://intellipedia.intelink.gov/wiki/ACSA), as well as AGATRS database. Only trained and
authorized personnel have access to AGATRS; contact respective MAJCOM/FLDCOM ACSA
manager for access to AGATRS. Additionally, the Joint Staff J-4 intellipedia site provides all
information necessary to educate personnel and execute ACSA transactions in accordance with
JS policy. Contact respective MAJCOM/FLDCOM ACSA manager for specific procedures or
guidance prior to conducting ACSA exchanges.
(Replace) 1.4.3. Equal-Value-Exchange (EVE).
(Delete) 1.4.4.
(Replace) 1.4.5. Guidance for pricing reimbursable transactions for ACSAs is found in CJCSI
2120.01D and DoD 7000.14-R, DoD Financial Management Regulations (FMR), Volume 11A,
Chapter 8. MAJCOM/FLDCOM FM ACSA POCs will oversee and provide MAJCOM
/FLDCOM ACSA managers with ACSA billing and payment policies and procedures.
(Replace) 2.3. Maintenance Interoperability Implementing Arrangements. Only nations or
organizations with an established ACSA are authorized to exchange aircraft repair and
maintenance services. IAs, MOAs, and MOUs can be used to further clarify common objectives
and expectations.
(Replace) 2.3.1. Maintenance Interoperability is defined as maintenance performed by a
Supplying Participant on a Receiving Participant’s assets, such as component
removal/replacement, inspections, as well as all maintenance cross-servicing criteria.
(Add) 2.3.2. Commands having like airframe repair and maintenance capability establish an
Implementing Arrangement where required by the terms of the ACSA or where otherwise
requested by the partner nation. The negotiation and conclusion of Implementing Arrangements
must be accomplished in accordance with DoDI 5530.03 and AFI 51-403. Where an
Implementing Arrangement is not required or requested, Memorandum of Agreement (MOA)
may be established in accordance with DoDI 5530.03, AFI 51-403 and DoDI 4000.19, Support
Agreements, or a non-legally binding Memorandum of Understanding (MOU) may be
established in accordance with DoDI 4000.19.
(Add) 2.3.2.1. MAJCOM/FLDCOM ACSA program managers are the lead for establishing an
IA through the appropriate Combatant Command.
(Add) 2.3.2.2. MOAs and MOUs may be developed by DAF units, joint services, or partner
nations at the organizational level for maintenance interoperability where maintenance will be
performed, such as a joint exercise or operation. MOAs and MOUs will be forwarded to the
MAJCOM/FLDCOM ACSA program manager once established and will be reviewed annually
for currency.”
(Add) 2.3.2.3. The following items will be considered for inclusion in any documented
agreement:
(Add) 2.3.2.3.1. Maintenance documentation requirements should be established in accordance
with current DAF guidance.
(Add) 2.3.2.3.2. Personnel performing maintenance on an aircraft will meet all qualifications,
certifications, and clearance requirements for owner nation aircraft prior to performing
maintenance on that MDS. (T-2)
(Add) 2.3.2.3.3. Exclude tasks related to national security/sensitive systems, such as
communication security systems, survival systems, propulsion management, etc.
(Replace) 3.2. The DAF ACSA Program. AF/A4L is the OPR for DAF ACSA matters and will
appoint a DAF ACSA manager.
(Replace) 3.2.1. The DAF ACSA manager is delegated authority by AF/A4L to:
(Replace) 3.2.1.1. Act as the single focal point for this DAFI and resolve disputes regarding its
implementation.
(Replace) 3.2.1.2. Represent the DAF at the CJCS/J4 annual ACSA worldwide workshop.
(Replace) 3.2.1.3. Chair a DAF ACSA working group, held in conjunction with the CJCS/J4
annual ACSA worldwide workshop.
(Replace) 3.2.1.4. Convene and chair Headquarters Air Force (HAF) level ACSA working
groups to resolve cross-functional issues (supply, maintenance, financial, legal, etc.) as required.
(Replace) 3.7. HAF, MAJCOM/FLDCOM, NAF, USSF Delta or
Wing/Installation/Garrison Financial Manager (FM). The FM community provides valuable
information when dealing with international financial issues. For PIK ACSA transactions, the
ACSA manager will coordinate with the appropriate FM office or the designated FM POC to
ensure all financial concerns are addressed.
Attachment 1
Glossary of References and Supporting Information
References
(Delete) DoDD 5530.3, International Agreements
(Add) DoDI 5530.03, International Agreements, 4 December 2019
(Add) AFI 10-1801, Foreign Governmental Aircraft Landings at USAF Installations, 25
September 2018
(Add) AFI 13-103, Air Component Headquarters AFFOR Staff Operations, Readiness and
Structures, 19 November 2020
(Add) AFI 23-101, Air Force Materiel Management, 29 January 2016
(Add) AFI 33-322, Records Management and Information Governance Program, 23 Mar 2020
(Delete) AFI 36-2651, Air Force Training Program, 3 Jan 2019
(Add) AFI 36-2670, Total Force Development, 25 Jun 2020
(Delete) AFMAN 33-363, Management of Records, 1 Mar 2008
(Delete) AFPD 51-7, International Law
(Add) AFI 51-403, International Agreements, 8 February 2019
Abbreviations and Acronyms
(Add) DAFI – Department of the Air Force Instruction
(Add) FLDCOM—Field Command
(Add) USSPACECOM—United States Space Command
(Add) USSF—United States Space Force
Office Symbols
(Add) JS/J-4—Joint Staff/Logistics Directorate
Terms
(Add) Aircraft Maintenance Cross-Servicing—Basic non-invasive aircraft maintenance, such as
aircraft launching/recovering, fluid servicing, or refueling/defueling, provided by the Supplying
Participant at the request of the Receiving Participant when there are no task-qualified
maintainers present from the Receiving Participant. In this instance, the Supplying Participant is
responsible for maintenance quality and documentation as previously agreed upon.
(Add) Lead Command—Designated major command, field command, Air Staff two-letter, field
operating agency subordinate to the Air Staff, direct reporting unit, SAF/AA, or other
organization leader providing input and advocacy for developing and maintaining assigned
weapon systems, non-weapon systems, and activities during their life cycle.
(Add) Maintenance Interoperability—Maintenance performed by a Supplying Participant on a
Receiving Participant’s assets such as component removal/replacement, inspections, as well as
all maintenance cross-servicing criteria.
(Add) Using Command—A command, agency or unit identified in relation to an assigned
weapon system, non-weapon system, or activity.
BY ORDER OF THE
SECRETARY OF THE AIR FORCE
AIR FORCE INSTRUCTION 25-301
3 JUNE 2016
Logistics Staff
ACQUISITION AND CROSS-
SERVICING AGREEMENTS
COMPLIANCE WITH THIS PUBLICATION IS MANDATORY
ACCESSIBILITY: This publication is available for downloading or ordering on the e-
Publishing website at www.e-Publishing.af.mil
RELEASABILITY: There are no releasability restrictions on this publication.
OPR: AF/A4LX
Supersedes: AFI 25-301, 5 May 2011
Certified by: AF/A4L
(Brig Gen William R. Kountz)
Pages: 18
This publication implements AF Policy Directive (AFPD) 25-3, Allied Logistics Support. It
provides guidance and procedures on Acquisition and Cross-Servicing Agreements (ACSAs) and
establishes the mandatory requirement to use the ACSA Global Automated Tracking and
Reporting System (AGATRS) for processing and recording all official AF ACSA transactions.
This publication does not cover agreements with other United States (US) military services or
other government agencies, US or foreign non-military organizations, or commercial contractors.
This instruction applies to individuals at all levels who prepare ACSA Standard Operating
Procedures (SOPs) and/or processes official AF ACSA transactions to include the Air National
Guard (ANG) and Air Force Reserve Command (AFRC). Refer recommended changes and
questions about this publication to the office of primary responsibilitiy (OPR) using the AF Form
847, Recommendation for Change of Publication; route AF Form 847s from the field through the
appropriate functional chain of command. The authority to waive wing or unit-level
requirements in this publication is identified by a Tier (“T-0, T-1, T-2, and T-3”) number
following the compliance statement. See AFI 33360, Publications and Forms Management,
Table 1.1 for a description of the authorities associated with the Tier numbers. Submit requests
for waivers through the chain of command to the appropriate Tier waiver approval authority, or
alternately, to the Publication OPR for non-tiered compliance items. Ensure that all records
created as a result of processes prescribed in this publication are maintained in accordance with
(IAW) AF Manual (AFMAN) 33-363, Management of Records, and disposed of IAW Air Force
Records Disposition Schedule (RDS) in the Air Force Records Information Management System
(AFRIMS). The use of the name or mark of any specific manufacturer, commercial product,
commodity, or service in this publication does not imply endorsement by the AF.
2 AFI25-301 3 JUNE 2016
SUMMARY OF CHANGES
This rewrite of this AFI is in response to customer feedback, process improvements, Department
of Defense (DoD) publication changes, and the SAF/AA compliance statement review effort.
Changes include: (1) additional requirement to use AGATRS and upload all applicable
documents for all ACSA transactions, (2) identified roles and responsibilities for Major
Command/Financial Managment (MAJCOM/FM) ACSA point of contacts (POCs) and ACSA
managers, (3) revisions to ACSA financial policies and procedures, and (4) incorporation of
approved recommendations from the Secretary of the Air Force/Adminstrative Assistant
(SAF/AA) Compliance Statement Review action.
AFI25-301 3 JUNE 2016 3
Chapter 1
GENERAL GUIDANCE AND LIMITATIONS
1.1. Definition and Purpose. An Acquisition and Cross-Servicing Agreement (ACSA) refers to
a legal instrument entered into under the authority of Title 10, US Code (USC), Subtitle A, Part
IV, Chapter 138, Subchapter I, Acquisition and Cross-Servicing Agreements, which authorizes
the acquisition and reciprocal provision of logistics support, supplies, or services (LSSS). An
ACSA is also sometimes referred to as a Logistics Support Agreement (LSA), Mutual Support
Agreements (MSA), or Mutual Logistics Support Agreement (MLSA). ACSAs allow for the
reimbursable exchange of LSSS between the Armed Forces and military forces of nations or
international organizations with which the US has a concluded ACSA. They are used primarily
during combined exercises, training, deployments, or unforeseen circumstances or exigencies,
including wartime, contingency operations, humanitarian or foreign disaster relief, and peace
operations conducted under Chapter VI or VII of the United Nations (UN) Charter, in which
there is a need to acquire and/or transfer LSSS.
1.1.1. The Secretary of Defense (SecDef) implements ACSA authorities from 10 USC
Section 2341 through DoD Directive 2010.9, Acquisition and Cross-Servicing Agreements.
The Under SecDef for Acquisition, Technology, and Logistics (USD AT&L)), IAW DoDD
2010.9, paragraphs 5.1.2 and 5.1.3; designates countries eligible for cross-servicing
agreements, authorizes the Chairman of the Joint Chiefs of Staff (CJCS) to conclude ACSA
agreements, and issues implementing ACSA policy and program management guidance to
the military departments. Respective responsibilities of the secretaries of the military
departments and the combatant commanders (CCDRs) are found in DoDD 2010.9. The AF
implements DoDD 2010.9 with AFPD 25-3.
1.1.1.1. ACSA is primarily a Combatant Command (CCMD) program. AF MAJCOMs,
CMAJCOMs and NGB, or lower level components, will execute ACSA programs IAW
an assigned Geographic CCMD or Functional CCMD for AMC and AFSOC.
1.1.1.2. AF CCMD execution:
MAJCOM/C-MAJCOM/or NAF/C-NAF
CCMD
Air Combat Command (ACC)
1 AF/AFNORTH
9 AF/AFCENT
12 AF/AFSOUTH
US Northern Command (USNORTHCOM)
US Central Command (USCENTCOM)
US Southern Command (USSOUTHCOM)
Air Education & Training Command
(AETC)
2 AF
19 AF
USNORTHCOM
AF Global Strike Command (AFGSC)
8 AF
20 AF
USNORTHCOM
AF Materiel Command (AFMC)
USNORTHCOM
CCMD
4 AFI25-301 3 JUNE 2016
MAJCOM/C-MAJCOM/or NAF/C-NAF
AF Reserve Command (AFRC)
4 AF
10 AF
22 AF
USNORTHCOM
AF Space Command (AFSPC)
14 AF
21 AF
24 AF
USNORTHCOM
AF Special Operations Command (AFSOC)
US Special Operations Command (USSOCOM)
and USNORTHCOM
Air Mobility Command (AMC)
18 AF/AFTRANS
US Transportation Command (USTRANSCOM)
and USNORTHCOM
Air National Guard Bureau (ANGB)
USNORTHCOM
Pacific Air Forces (PACAF)
5 AF
7 AF
11 AF
US Pacific Command (USPACOM)
US Air Forces Europe-Air Forces Africa
(USAFE-AFAFRICA)
3 AF
US European Command (USEUCOM), US
Africa Command (USAFRICOM)
1.1.1.3. Units operating in an AOR as a chopped, transient, or deployed force should
execute ACSA transactions IAW with the deployed installation’s guidance first, and if a
program management is not available locally, reach-back to their assigned NAF or
MAJCOM for support. For example, an AF unit deployed to Al Udeid AB should
execute ACSA transactions using the 379 Air Expeditionary Wing (AEW) ACSA
program (AFCENT-USCENTCOM).
1.1.2. An ACSA is not the primary means for obtaining LSSS. It does not replace national
responsibilities for planning and acquiring logistics requirements. The intent of an ACSA is
to provide commanders with a flexible tool to obtain or provide LSSS when mission needs
prevent self-support.
1.1.3. There are other statutory authorities, programs and international agreements that allow
US Forces to provide support to foreign forces. Determining which statutory authority is
AFI25-301 3 JUNE 2016 5
appropriate is scenario dependent. Supporting legal offices and AF Component ACSA
managers can provide guidance on alternatives.
1.2. ACSA Global Automated Tracking and Reporting System (AGATRS). AGATRS is
DoD’s accountable property system of record (APSR) for the SecDef, Joint Staff (JS), CCMDs,
and Service Components to manage and track all ACSA transactions. This system also serves as
the world-wide library for concluded ACSAs and Implementing Arrangements (IA). AGATRS
is an unclassified web-based system that can be accessed world-wide. See Chairman of the Joint
Chief of Staff Instruction (CJCSI) 2120.01D, Acquisition and Cross-Servicing Agreements,
Enclosure A, paragraph 5.k for additional information on AGATRS.
1.2.1. AGATRS will be used by all AF units, as directed by MAJCOM, Numbered Air Force
(NAF), or CCMD Service Component; to create, record, track, report on, and otherwise
manage ACSA transactions. (T-0).
1.2.2. Documentation recorded in AGATRS will include transactional information that
refects the transfer, purchase and/or sale of material sufficient to provide a complete audit
trail, fully compliant with Undersecretary of Defense (Comptroller) Financial Improvement
and Audit Readiness (FIAR) Guidance, April 2015, and DoDI 5010.40, Managers’ Internal
Control Program Procedures, 30 May 2013. (T-0). See DoD Financial Management
Regulation (FMR) 7000.14-R, Volume 11A, Reimbursable Operations Policy, Chapter 8 and
paragraphs 2.4 and 4.1 of this instruction for additional guidance on ACSA documentation.
1.3. Eligible Foreign Nations. Only foreign militaries and international organizations with
which the US has concluded ACSAs are eligible for cross-servicing (acquisition and sale or
transfer of LSSS) using ACSA authority. Eligible countries and international organizations from
which the US may acquire LSSS under the acquisition-only authority are those that meet the
criteria in paragraph 4.2 of DoDD 2010.9.
1.3.1. Negotiation and conclusion of ACSAs must be accomplished per AFPD 51-7,
International Law and DoDD 5530.3, International Agreements.
1.3.2. A list of current ACSAs and IAs can be downloaded from the Joint Staff J-4
intellipedia site (https://intellipedia.intelink.gov/wiki/ACSA), as well as AGATRS
database. Only trained and authorized personnel have access to AGATRS; contact your
MAJCOM/A4 ACSA manager if you require access to AGATRS. Additionally, the Joint
Staff J-4 intellipedia site provides all information necessary to educate personnel and execute
ACSA transactions in accordance with JS policy. Contact your MAJCOM ACSA manager
for specific procedures or guidance prior to conducting ACSA exchanges.
1.4. Reimbursement Methods. ACSAs and IAs allow for reimbursement in one of three ways:
1.4.1. Payment-in-Kind (PIK) including electronic funds transfer (EFT), cash or check.
1.4.2. Replacement-in-Kind (RIK).
1.4.3. Equal-Value-Exchange (EVE). Guidance for pricing reimbursable transactions for
ACSAs is found in DoD FMR 7000.14-R, Volume 11A, Chapter 8.
1.4.4. All ACSA transactions will be processed using AGATRS.
6 AFI25-301 3 JUNE 2016
1.4.5. PIK transactions are billed/paid in accordance with CJCSI 2120.01D, DoD FMR
7000.14R. MAJCOM/FM ACSA POCs will oversee and provide MAJCOM ACSA
managers with ACSA PIK billing and payment policies and procedures.
1.5. Categories of Support. CJCSI 2120.01D, page GL-4, defines LSSS that may be
exchanged using ACSA authority as: food, water, billeting, transportation (including airlift),
petroleum, oils, lubricants, clothing, communications services, medical services, ammunition
(with limitations), base operations support (and construction incident to base operations support),
storage services, use of facilities, training services, spare parts and components, repair and
maintenance services, calibration services, and air and sea-port services. The term also includes
temporary use (lease or loan) of general purpose vehicles and other items of non-lethal military
equipment not designated as significant military equipment on the United States Munitions List
(USML) promulgated pursuant to Title 22, USC, Part 1, subchapter M, Part 121, The United
States Munitions List.
1.5.1. As outlined in 10 USC § 2350, base operations support allowable under ACSA
includes minor construction under 10 USC § 2854, 2805, and 2803 incident to base
operations support. Further guidance on minor construction projects is found in AFI 32-
1023, Designing and Constructing Military Construction Projects.
1.5.2. For guidance on control and transfer of USML and combat configured load assets,
refer to AFI 23-101, Air Force Materiel Management and AFI 21-201, Conventional
Munitions Management.
1.5.3. ACSAs may not be used to transfer items that are subject to the Atomic Energy Act of
1954 (42 USC § 2011 et seq). If it is unclear whether a contemplated category of LSSS is
permissible, consult your higher headquarters ACSA manager and the servicing Staff Judge
Advocate for specific guidance.
1.6. Guidance for ACSA Use. Before providing any LSSS, including repair services,
maintenance services or spares support to a foreign military under an ACSA, the ACSA POC
must ensure release of the requested LSSS is authorized. Release of classified or sensitive
materiel must be carefully examined and specifically approved by the appropriate Foreign
Disclosure release authority. Transfer of publications, regulations, technical orders and similar
documents is not authorized under this program. An ACSA does not bind either party to
providing support. Support must be denied if requested support is not authorized, negatively
impacts US military appropriations or current operations, and/or requires an increase in US
inventory levels for the sole purpose of supporting foreign LSSS requests.
1.6.1. The Defense Logistics Agency-Energy (DLA-E) oversees and executes the majority
of Petroleum, Oils and Lubricants (POL) transfers using ACSA IAs, Fuel Exchange
Agreements, Offset Billing Agreements, or Direct Billing Agreements in accordance with
DoD 4140.25-M, Volume II, Chapter 17, DoD Management of Bulk Petroleum Products,
Natural Gas, and Coal, and in accordance with AFI 23-201, Fuels Management. AF
organizations requiring fuel support and related services from foreign governments shall
forward their requirements to DLA-E via the respective CCMD Joint Petroleum Office.
1.6.2. In accordance with AFI 10-1801, Foreign Government Aircraft Landings at USAF
Installations, “routine airport services” are provided on a non-reimbursable basis for military
and state aircraft of foreign countries. AFI 10-1801 identifies standard non-reimbursable
AFI25-301 3 JUNE 2016 7
support, such as use of runways, ground services, baggage on/off loading, and other routine
airport services, that may be provided to all foreign militaries transiting US installations,
whether or not they are NATO members. AFI 10-1801 is only applicable to transient forces
and does not apply to locations having a permanent or semi-permanent foreign military
mission/presence or planned operational missions, either transiting or operating from that
location. AFI 10-1801 does not permit the provision of consumable items (i.e., petroleum,
oil, lubricants, repair parts, etc.) on a non-reimbursable basis.
1.6.3. In accordance with paragraph 4.7 of DoDD 2010.9, US Transportation Command
(USTRANSCOM) is the approval authority for ACSA requests for airlift operated by AMC.
Applicable combatant command ACSA managers are the approval authorities for airlift
requests using CCMD organic assets. Airlift ACSA requests are processed from the foreign
military requestor through appropriate command levels to the appropriate CCMD ACSA
manager. When requesting airlift from a foreign military, the MAJCOM ACSA manager
will coordinate the request through the appropriate CCMD ACSA manager who may consult
with USTRANSCOM as needed.
1.6.4. When properly approved, and consistent with the law and DoDD 2010.9, vehicles and
equipment end items may be provided as a loan/lease under the provisions of ACSA. There
are circumstances such as exercises, contingencies, and transient support to foreign forces
where it is appropriate to loan/lease vehicles or equipment end items. AF Component ACSA
managers should refer to CCMD directives, instructions, or guidance to ensure any loan/lease
is in compliance with CCMD policy. Functional area managers must confer with Financial
Management (FM) personnel to determine fair lease rates. Guidance for pricing for the use
(lease) of equipment provided under an ACSA is found at paragraph 080601.B of Volume
11A, Chapter 8, of DoD FMR 7000.14-R.
1.6.5. AF organizations may not negotiate the provision of support inherently controlled or
owned by another AF organization, without the prior approval of that organization and/or
appropriate headquarters elements.
1.6.6. LSSS acquired from the AF through an ACSA may not be transferred by the recipient
country or organization to a third party without the permission of the US government.
Requests for such transfers must be forwarded through the applicable CCMD to Office of the
Secretary of Defense (OSD).
8 AFI25-301 3 JUNE 2016
Chapter 2
ACQUISITION AND CROSS-SERVICING AGREEMENT (ACSA) AUTHORITIES
AND RELATED DOCUMENTS
2.1. Acquisition and Cross-Servicing Authorities. ACSAs are authorized per Title 10 of the
United States Code, Chapter 138, Subchapter I. This chapter of law provides for two distinct
ACSA authorities: Acquisition-Only Authority and Cross-Servicing Authority.
2.1.1. Acquisition-Only Authority. In situations where no Cross-Servicing Agreement exists,
acquisition-only authority may be implemented either through contract using the authority of
Federal Acquisition Regulation (FAR), or through international agreements (acquisition-only
agreements) that rely on the authority of 10 USC § 2341.
2.1.2. Cross-Servicing Authority. 10 USC Section 2342 authorizes the establishment of
Cross-Servicing Agreements under which the US may transfer LSSS to the military services
of a foreign country on a reciprocal/reimbursable basis.
2.2. Acquisition and Cross-Servicing Agreements (ACSA). The SecDef implements ACSA
authority in DoDD 2010.9. ACSAs are normally negotiated by the applicable geographic
CCMD with OSD approval. IAW AFPD 25-3, authority to negotiate and conclude cross-
servicing agreements must be requested from the Secretary of the AF on a case by case basis.
Procedures used for negotiating and concluding implementing arrangements must be IAW AFPD
51-7 and AFI 51-701, Negotiating, Concluding, Reporting and Maintaining International
Agreements. ACSAs form the foundation for follow-on Implementing Arrangements (IA), if
such arrangements are required.
2.3. Implementing Arrangements (IA). IAs define specific roles and responsibilities for
executing LSSS transfers, specify additional terms and conditions, identify types of support and
payment methods, and provide key points of contact for logistical and financial concerns.
2.3.1. An IA is often negotiated at the same time as the ACSA and is normally incorporated
into the ACSA. It may also be a separate document, usually annexed and subordinate to the
ACSA. The IA is normally generic in scope and multi-service applicable. POCs for each
signatory are listed, allowing direct contact between POCs in initiating and conducting
transactions. Development, negotiation and conclusion of any IA require delegated authority
and must be coordinated through the appropriate CCMD ACSA manager.
2.4. Requests for Support. Requests for support processed under the authority of an ACSA or
an ACSA IA are treated as “orders” however, providing support is not mandatory and each
request must be evaluated for legal sufficiency and operational impacts. All approved ACSA
orders will be loaded into AGATRS, with proof of reimbursement support, to ensure AF has full
auditability from the placement of an approved order to the payment for that order.
2.4.1. IAW AFPD 25-3 approved transactions (orders accepted and filled) will be
documented.
2.4.1.1. Agreed upon forms of documentation are normally identified within the
applicable ACSA and/or IA. The Form 1-3a, Acquisition and Cross-Servicing Agreement
(ACSA)/Mutual Logistics Support (MLS) Order Form, produced in AGATRS is the DoD
standard ACSA order/receipt/invoice form and will be used by AF forces whenever
AFI25-301 3 JUNE 2016 9
possible. Attach any applicable forms or Implementing Instructions (II) as necessary to
the primary transaction form.
2.4.1.2. If AGATRS is unavailable, or if use of the Form 1-3a is otherwise precluded, an
alternate form of documentation is acceptable as long as it contains all minimum essential
data elements and proper/authorized signatures from both parties to the transaction.
2.4.1.3. Required data elements are listed in every ACSA/IA. See CJCSI 2120.01D,
Acquistion and Cross-Servicing Agreements, Enclosure D, Appendix A for additional
information regarding minimum essential data elements and a sample Form 1-3a.
2.4.2. ACSA managers will use AGATRS to maintain a record of all completed ACSA
transactions. (T-0). AGATRS is the official DoD system of record and all ACSA
transactions must be inputted, along with electronic copies of forms and supporting
documents applicable to the transaction (i.e., ledgers, spreadsheets, forms, formulas, e-mails
or other correspondence used to justify the transaction, establish pricing, verify
quantity/quality of support, or provide evidence of receipt or consumption). Supporting
documentation may include, but will not be limited to:
2.4.2.1. Signed ACSA forms
2.4.2.2. Records of meals consumed
2.4.2.3. Personnel status report or billeting headcounts
2.4.2.4. Fuels dispensation or receipt records
2.4.2.5. Standard supply system issue/receipt/turn-in documents
2.4.2.6. Civil engineer work orders
2.4.2.7. Records of utilities provision or consumption
2.4.2.8. Record of medical visit; provision of medical support; consumption of medical
materiel
2.4.2.9. Contracts or record of contracting action
2.4.2.10. Shipping documents; bills of lading
2.4.2.11. Invoice and payment documentation (bills, receipts, cash collection vouchers)
2.4.2.12. Records of coordination or negotiation
2.5. Implementing Instructions (II). IIs are used, as necessary, to define the details of a
complicated transaction or to identify administrative procedures. IIs may be written as an
attachment to an ACSA order form or as a stand-alone enduring document that can be routinely
applied at a forward operating location or combined exercise. Contact AF Component ACSA
managers for examples and templates.
2.5.1. Stand-alone IIs are developed and published by AF personnel, units or agencies and
are not signed by foreign force representatives. Such IIs are not considered international
agreements and therefore the requirements and restrictions of AFI 51-701 do not apply. Care
must be taken, however, to ensure the IIs are fully consistent with, and do not exceed, the
scope of the ACSA or IA. To that end, a review of stand-alone IIs by the local Staff Judge
Advocate (SJA) office is recommended.
10 AFI25-301 3 JUNE 2016
2.5.2. The authority to write IIs rests with the appropriate ordering authorities listed in the
ACSA or IA, or their designated POCs. This authority may be further delegated to levels
appropriate to ensure transaction visibility and accountability.
2.5.3. Foreign ACSA managers or POCs may have different procedures for establishing the
terms of exchange when they are the transaction supplying agent. The use of IIs should be
promoted as the preferred method of detailing ACSA exchanges involving AF units.
AFI25-301 3 JUNE 2016 11
Chapter 3
FUNCTIONAL AREA RESPONSIBILITIES AND AUTHORITIES
3.1. Combatant Commands (CCMDs). CCMDs generally serve as the DoD executive agent
for ACSAs concluded with countries or organizations within their geographic area of
responsibility (AOR). In this capacity they are responsible for establishing policies and
procedures governing the use of those ACSAs for which they are executive agent, and managing
the overall ACSA program within the AOR.
3.1.1. CCMD ACSA responsibilities are delineated in DoDD 2010.9 and CJCSI 2120.01D.
3.2. AF ACSA Manager. AF/A4L is the OPR for AF ACSA matters and will appoint an AF
ACSA manager.
3.2.1. The AF ACSA manager is delegated authority by AF/A4L to:
3.2.1.1. Act as the single focal point for this AFI and resolve disputes regarding its
implementation.
3.2.1.2. Represent AF at the CJCS/J4 annual ACSA worldwide workshop.
3.2.1.3. Chair an AF ACSA working group, held in conjunction with the CJCS/J4 annual
ACSA worldwide workshop.
3.2.1.4. Convene and chair Headquarters Air Force (HAF) level ACSA working groups
to resolve cross-functional issues (supply, maintenance, financial, legal, etc.) as required.
3.3. MAJCOM, C-MAJCOM, or NGB ACSA Manager. The MAJCOM/A4 Directors are
delegated ACSA authorities and will appoint an ACSA manager from the logistics plans
functional area IAW CJCSI 2120.01D, Enclosure A, paragraph 9. MAJCOM ACSA managers
must be cognizant of their CCMD ACSA policies and procedures and should establish a working
relationship with the CCMD ACSA manager, typically located in the logistics directorate (J4).
3.3.1. The MAJCOM ACSA manager is delegated authority by their MAJCOM/A4 to:
3.3.1.1. Execute transactions on behalf of the AF in accordance with DoD and CCMD
guidance.
3.3.1.2. Ensure compliance with applicable directives and instructions.
3.3.1.3. Maintain ACSA transaction records in AGATRS.
3.3.1.4. Delegate ACSA transaction authority, within the parameters of pertinent IAs, to
subordinate units when appropriate.
3.3.1.5. Provide MAJCOM guidance to the field.
3.3.1.6. Provide ACSA awareness training to MAJCOM/NAF staff and functional area
managers, as required.
3.3.1.6.1. Use Joint Knowledge Online (JKO) courses P-US1293, Acquisition and
Cross-Servicing Agreements (ACSA) Overview and P-US1295, AGATRS Essentials
for staff officers supporting the ACSA program.
12 AFI25-301 3 JUNE 2016
3.3.1.6.2. Use JKO course P-US1294, Acquisition and Cross Servicing Agreements
(ACSA) FOGO Essentials Course, for senior leaders with an ACSA program under
their Command.
3.3.1.7. Provide ACSA training and related materials to MAJCOM, NAF or wing-level
ACSA Managers, as required.
3.3.1.8. Represent their MAJCOM’s interests at the CJCS/J4 annual worldwide ACSA
workshop and HAF ACSA working groups.
3.4. NAF ACSA Manager. The NAF/A4 will serve as the ACSA authority within the NAF and
should appoint an ACSA manager from the logistics plans functional area IAW CJCSI
2120.01D, Enclosure A, paragraph 9.
3.4.1. NAF/A4 may delegate the appointed ACSA manager the authority to:
3.4.1.1. Execute transactions on behalf of the AF IAW DoD, CCMD, and MAJCOM
guidance.
3.4.1.2. Ensure compliance with applicable directives and instructions.
3.4.1.3. Maintain ACSA transaction records in AGATRS.
3.4.1.4. Delegate ACSA transaction authority, within the parameters of pertinent IAs, to
subordinate units as appropriate.
3.4.1.5. Provide NAF guidance to the field.
3.4.1.6. Provide ACSA awareness training using the applicable JKO courses (i.e., P-
US1294) to NAF staff and functional area managers as required.
3.4.1.7. Provide ACSA training using the applicable JKO courses (i.e., P-US1293 and
PUS1295) and related materials to wing-level ACSA managers as required.
3.5. Wing/Installation Level ACSA Manager. When ACSA authority is delegated to an
installation where the USAF is the host, the host Wing will appoint an Installation ACSA
Manager to execute the program on behalf of all USAF host and tenant organizations. (T-1). At
Joint Bases where the USAF is not the host (e.g., Joint Base Lewis-McChord) the USAF Wing
will appoint a Wing ACSA Manager to execute the ACSA program. (T-1). The
Wing/Installation Level ACSA Manager will:
3.5.1. Execute the ACSA program as directed and delegated by MAJCOM and/or NAF. (T-
1).
3.5.2. Provide ACSA awareness training using the applicable JKO courses (i.e., P-US1293,
P-US1294, and P-US1295) to the wing/installation commander, command staff, and
squadron-level personnel, as required. (T-1).
3.6. Staff Judge Advocate (JA). The MAJCOM/JA and/or AF component JA of the applicable
CCMD equivalent provides a valuable source of knowledge and experience in dealing with
international issues. All proposed ACSAs, IAs, IIs, or contentious issues will be coordinated
with the servicing staff judge advocate to ensure all legal concerns are addressed.
AFI25-301 3 JUNE 2016 13
3.6.1. Unresolved MAJCOM/JA ACSA legal issues should be forwarded from
MAJCOM/JA to either the CCMD legal office or SAF/GCI for resolution, with copy to
AF/JAO.
3.6.2. The MAJCOM/JA will provide a legal memorandum for all specific IAs negotiated at
the MAJCOM level per the requirements of AFI 51-701.
3.7. MAJCOM, NAF or Wing/Installation Financial Manager (FM). The FM community
provides valuable information when dealing with international financial issues. For PIK ACSA
transactions, the ACSA manager will coordinate with the appropriate FM office or the
designated FM POC to ensure all financial concerns are addressed.
3.7.1. Each appropriate level FM will appoint a single POC to coordinate with the
commensurate-level ACSA manager on pricing and reimbursement activities. Financial
POCs coordinate with appropriate Defense Accounting and Finance Service office
concerning ACSA-related reimbursements.
3.7.2. The FM POC will coordinate, as needed, on ACSA orders prior to final signature to
validate cost estimates and reimbursement procedures.
3.7.3. In accordance with MAJCOM policy, the FM POC will provide documents reflecting
payment or collection data for upload into AGATRS.
3.7.4. The FM POC will ensure compliance with DoD FMR, Volume 11A, Chapter 8
guidance on payment and pricing of ACSA transactions.
3.8. Functional Area Managers. Functional area managers and subject matter experts will
coordinate directly with ACSA managers to procure support under ACSA. In addition, the
ACSA managers will coordinate foreign support orders with the appropriate functional managers
prior to approving the provision of LSSS.
3.8.1. Appropriate functional managers must review relevant ACSA transactions. This
review is required to ensure funding is available when receiving support, and to ensure there
is no operational impact when providing support. Until funds have been identified, AF units
cannot request support, and if there are negative operational impacts, support should not be
provided to foreign militaries.
3.8.2. Functional area experts at the staff and installation level will assist ACSA Managers in
the development of IIs that establish costs and procedures and will help resolve other issues
as needed.
14 AFI25-301 3 JUNE 2016
Chapter 4
DOCUMENTATION AND REPORTING REQUIREMENTS
4.1. Agreement Files. The ACSA manager will maintain local files and original documents on
all ACSA transactions.
4.1.1. ACSA managers may use electronic or on-line forms, spreadsheets or programs for
transactional filing, accounting and tracking; however, AGATRS is the DoD accountable
property system of record (APS) and all transactions will be recorded within this system. See
paragraphs 1.2.2 and 2.4.2 of this instruction for additional information regarding required
documentation and AGATRS use.
4.1.2. AGATRS will also be used to satisfy the requirement for a quarterly summary report
of ACSA transactions and relevant program information found in DoDD 2010.9. See the
DoD FMR 7000.14-R, Volume 11A, Chapter 8, for additional guidance on reporting and
documentation.
4.1.3. ACSA managers and IA POCs will keep current signed copies of all pertinent ACSAs
and IAs. Concluded ACSAs and IAs can be found in AGATRS or obtained from the JS,
Multinational Logistics Division.
JOHN B. COOPER
Lieutenant General, USAF
DCS/Logistics, Engineering & Force Protection
AFI25-301 3 JUNE 2016 15
Attachment 1
GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION
References
AFI 10-1801, ForeignictectGovernmental Aircraft Landings at USAF Installations, 27 January
2009
AFI 21-201, Conventional Munitions Management, 3 June 2015
AFI 23-101, Air Force Materiel Management, 29 January 2016
AFI 32-1023, Designing and Constructing Military Construction Projects, 19 November 2015
AFI 33-360, Publications and Forms Management, 1 December 2015
AFI 51-701, Negotiating, Concluding, Reporting and Maintaining International Agreements, 5
February 2009
AFMAN 33-363, Management of Records, 1 March 2008
AFPD 25-3, NATO and Allied Logistics Support, 26 June 2012
AFPD 51-7, International Law, 27 March 2012
CJCSI 2120.01D, Acquisition and Cross-Servicing Agreements, 21 May 2015
DoDD 2010.9, Acquisition and Cross-Servicing Agreements, 28 April 2003
DoDD 5530.3, International Agreements, 21 November 2003
DoD FMR 7000.14-R, Volume 11A, Reimbursable Operations Policy, November 2014
DoDI 4140.25-M, Volume II, Chapter 17, DoD Management of Bulk Petroleum Products,
Natural Gas, and Coal, 25 June 2015
DoDI 5010.40, Managers’ Internal Control Program Procedures, 30 May 2013
Title 10, United States Code, Subtitle A, Part IV, Chapter 138, Subchapter I, Acquisition and
Cross-Servicing Agreements, 2 Jan 2013
Title 22, United States Code, Part 1, Chapter 1, Subchapter M, Part 121, The United States
Munitions List, 1 Apr 2002
Joint Publication (JP) 4-08, Logistics in Support of Multinational Operations, 21 February 2013
Financial Improvement and Audit Readiness (FIAR) Guidance, April 2015
Prescribed Forms
None
Adopted Forms
AF Form 847, Recommendation for Change of Publication
Form 1-3a, Acquisition and Cross-Servicing Agreement (ACSA)/Mutual Logistics Support (MLS)
Order Form, (generated by AGATRS)
16 AFI25-301 3 JUNE 2016
Abbreviations and Acronyms
ACC—Air Combat Command
ACSA—Acquisition and Cross-Servicing Agreement
AETC—Air Education & Training Command
AEW—Air Expeditionary Wing
AFAFRICA—Air Forces Africa
AFCENT—Air Forces Central Command
AFGSC—Air Force Global Strike Command
AFI—Air Force Instruction
AFPD—Air Force Policy Directive
AFMAN—Air Force Manual
AFRIMS—Air Force Records Information Management System
AFMC—Air Force Materiel Command
AFNORTH—Air Forces Northern
AFSPC—Air Force Space Command
AFSOC—Air Force Special Operations Command
AFSOUTH—Air Forces Southern
AGATRS—ACSA Global Automated Tracking and Reporting System
AMC—Air Mobility Command
NGB—National Guard Bureau
AOR—Area of Responsibility
AMC—Air Mobility Command
C-NAF—Component Numbered Air Force
CCDR—Combatant Commander
CCMD—Combatant Command
CJCSI—Chairman of the Joint Chiefs of Staff Instruction
DoD—Department of Defense
DoDD—Department of Defense Directive
DoDI—Department of Defense Instruction
DoDM—Department of Defense Manual
EFT—Electronic Funds Transfer
EVE—Equal-Value-Exchange
AFI25-301 3 JUNE 2016 17
FAQ—Frequently Asked Questions
FAR—Federal Acquisition Regulation
FIAR—Financial Improvement and Audit Readiness
FM—Financial Management
FMR—Financial Management Regulation
FOGO—Flag Officer/General Officer
HAF—Headquaters Air Force
IA—Implementing Arrangement
IAW—In Accordance With
II—Implementing Instruction
JA—Judge Advocate
JKO—Joint Knowledge Online
JS—Joint Staff
LSSS—Logistics Support, Supplies, or Services
LSA—Logistics Support Agreement
MAJCOM—Major Command
MLSA—Mutual Logistics Support Agreement
NAF—Numbered Air Force
NATO—North Atlantic Treaty Organization
OPR—Office of Primary Responsibility
OSD—Office of the Secretary of Defense
PACAF—Pacific Air Forces
PIK—Payment-In-Kind
POC—Point of Contact
POL—Petroleum, Oils and Lubricants
RDS—Records Disposition Schedule
RIK—Replacement In Kind
SecDef—Secretary of Defense
SOP—Standard Operating Procedures
UN—United Nations
US—United States
USAFE—United States Air Forces in Europe
18 AFI25-301 3 JUNE 2016
USC—United States Code
USAFRICOM—US Africa Command
USCENTCOM—US Central Command
USML—United States Munitions List
USNORTHCOM—US Nothern Command
USPACOM—United States Pacific Command
USSOCOM—United States Special Operations Command
USSOUTHCOM—US Southern Command
USTRANSCOM—United States Transportation Command
Terms
Acquisition-Only Agreement—A legal instrument entered into under the authority of 10 USC §
2341 to acquire logistic support, supplies, or services. An acquisition agreement is an
international agreement.
Cross-Servicing Agreement—A legal instrument entered into under the authority of
10 USC § 2342 that authorizes the reciprocal provision of logistic support, supplies, or services.
A Cross-Servicing Agreement is an international agreement.
Implementing Arrangements (IA)—A supplementary arrangement that prescribes details,
terms, and conditions to implement an ACSA in more defined levels of activity than ACSAs
themselves. They must be completely consistent with associated ACSAs and DoDD 2010.9.
Implementing arrangements that do not involve the obligation of funds may extend for an
indefinite period of time. An implementing arrangement is an international agreement.
Implementing Instructions (II)—IIs address the type of support exchanged, units involved, the
duration required, any limitations involved, costs incurred, fund cite(s) to which payment will be
transferred, billing cycles, and so on. IIs are distributed to all organizations identified in the II,
to include applicable foreign POCs. Since IIs primarily address in-house administrative
procedures and responsibilities for handling transactions, they are not international agreements
and are not signed by both national forces.
