AFI25-201.pdf

BY ORDER OF THE

SECRETARY OF THE AIR FORCE

AIR FORCE INSTRUCTION 25-201

1 MAY 2005

Incorporating Change 1, 28 January 2008

Logistics Staff

SUPPORT AGREEMENTS PROCEDURES

COMPLIANCE WITH THIS PUBLICATION IS MANDATORY

ACCESSIBILITY: Publications and forms are available on the e-Publishing website at www.e-publishing.af.mil for downloading or ordering.

RELEASABILITY: There are no releasability restrictions on this publication.

OPR: HQ USAF/ILGC Certified by: HQ USAF/IL (Brig Gen Ron Ladnier, USAF)

Supersedes AFI 25-201, 1 December 1996 Pages: 39

This instruction implements AFPD 25-2, Support Agreements, dated 01 November 2001, by detailing support agreements procedures within the Air Force. DoDI 4000.19 governs Interservice and Intragovern-mental Support. The financial management aspects of Air Force Support are covered in AFI 65-601. Sup-port to civilian authorities is covered in AFI 10-802. Air Force and DoD Policy directs that support agreements be developed between suppliers and receivers within the affected organizations to document recurring day-to-day peacetime support in order to provide unit commanders with the capability to ensure resources are expended wisely and to help eliminate unnecessary resource duplication. This instruction does not cover international agreements or the administration of contracts. Ensure that all records created as a result of processes prescribed in this publication are maintained in accordance with AFMAN 37-123, Management of Records and disposed of in accordance with the Air Force Records Disposition Schedule (RDS) located at https://webrims.amc.af.mil/.

Request you review the Air Force Records Disposition Schedule (RDS) located at https:// webrims.amc.af.mil to ensure all records collected as a result of compliance with this publication are correctly scheduled, the information as stated in the AF RDS is still current and valid to include form numbers, office symbols, retention periods, etc. If discrepancies exist in the RDS, follow instructions in AFI 37-138 and AFMAN 37-123 to update the schedule.

SUMMARY OF CHANGES

This revision revises and/or clarifies Civil Engineering (CE), Security Forces (SF) and Staff Judge Advo-cate (SJA) reviews during Support Agreement (SA) routing. It identifies early National Environmental Policy Act (NEPA) compliance. It authorizes electronic and digital signatures as an approved method to sign agreements and eliminates the triennial review requirement. A bar ( | ) indicates a revision from the previous edition.

https://webrims.amc.af.mil/ https://webrims.amc.af.mil https://webrims.amc.af.mil http://www.e-publishing.af.mil

2 AFI25-201 1 MAY 2005

Chapter 1— AGREEMENTS—PURPOSE, TYPE, AND AUTHORITY 4

1.1. Support Agreements Covered by DD Form 1144

1.2. Memorandums of Agreement/Understanding (MOA/MOUs)

1.3. Major Range and Test Facility Bases

1.4. Support That Does Not Fall Under DoDI 4000.19 or This Instruction

Chapter 2— FUNCTIONAL AREA RESPONSIBILITIES AND AUTHORITIES 6

2.1. MAJCOM

2.2. Installation Supplier Support Agreement Manager (SAM)

2.3. Installation Receiver SAM

2.4. Supplier Functional Area Agreement Coordinator (FAAC)

2.5. Installation Manpower and Organization Flight

2.6. Installation Financial Management/Comptroller (FM)

2.7. Environmental Impact Analysis Process (EIAP)

2.8. Installation Security Forces (SF)

2.9. Installation Staff Judge Advocate (SJA)

2.10. Disposition of Support Agreements

Chapter 3— SEEKING SUPPORT AND WAIVERS 10

3.1. Seeking Support

3.2. Development of Support Agreements

3.3. Waivers to Support

Chapter 4— SUPPORT AGREEMENT DOCUMENTATION PROCEDURES 12

4.1. Identifying the Requirement

4.2. Drafting - Support Responsibilities

4.3. Drafting - Financial Responsibilities

4.4. Drafting - Manpower and Organization Responsibilities

4.5. Contract Provided Support

Chapter 5— SUPPORT AGREEMENT PROCESSING AND REVIEW PROCEDURES 15

5.1. Preparing and Revising Agreements

5.2. Coordination

5.3. Approval and Signatures

5.4. Review and Revision of Support Agreements

AFI25-201 1 MAY 2005 3

5.5. Resolving Impasses

5.6. Reduction, Modification or Termination of Support

5.7. Form Prescribed

Figure 5.1. Suggested Agreement Process Flow Chart

Figure 5.2. Suggested Agreement Process Flow Chart

Figure 5.3. Annual FM Review Flow-Chart

Figure 5.4. Intra/Interservice Funding Annex (Suggested Format)

Attachment 1— GLOSSARY OF REFERENCES, AND SUPPORTING INFORMATION 23

Attachment 2— COMPLETION OF DD FORM 1144 27

Attachment 3— SUPPORT AGREEMENT STRUCTURE AND DISTRIBUTION 29

Attachment 4— SAMPLE MOA/MOU 30

Attachment 5— MISSION SUPPORT CATEGORIES 31

Attachment 6— SPECIAL SUPPORT CONDITIONS 33

Attachment 7— SAMPLE COORDINATION SHEET 34

Attachment 8— SAMPLE SUPPORT AGREEMENT MANPOWER/COST DATA SHEET 35

Attachment 9 36

4 AFI25-201 1 MAY 2005

Chapter 1

AGREEMENTS—PURPOSE, TYPE, AND AUTHORITY

1.1. Support Agreements Covered by DD Form 1144.

1.1.1. Support agreements administered by the Air Force are normally documented on DD Form

1144 fall into the following principal categories:

Air Force to Air Force, known as Intraservice Agreements (to include Air Force Reserve Command (AFRC) and Air National Guard (ANG)).

Air Force to other Service or DoD components, known as Interservice Agreements.

Air Force to other non-DoD Federal activities, known as Intragovernmental Agreements.

Air Force to other non-Federal activities, excluding private or commercial enterprises.

1.1.2. To ensure the maintenance of a comprehensive logistics record, all significant recurring support provided by the Air Force shall be recorded on DD Form 1144, whether reimbursable or non-reim-bursable. Also, record all such support on DD Form 1144 when the Air Force is the receiver.

1.1.3. Policy and procedures for Interservice, Intragovernmental and Air Force to non-Federal activi-ties are governed by the DoDI 4000.19. In addition, the DoDI 4000.19 provides general guidance for the administration of support agreements within the DoD community.

1.1.4. Conflict with Other Guidance. Information in agreements will not supersede any other DoD or Air Force directive or instruction that has instructional details of functional area support. The agree-ment itself should not prescribe detailed procedures for performing any particular support function.

Such guidance is usually in other DoD or Air Force directives, instructions, manuals, etc., which apply to the particular type of support being performed. See Attachment 6 for examples. If such information is not in the DoD or Air Force directive in enough detail for local use, a local-level oper-ational procedure/directive should be prepared and referenced in the agreement.

1.2. Memorandums of Agreement/Understanding (MOA/MOUs).

1.2.1. Most MOAs and MOUs are used to define areas of broad agreement between two or more par-ties. MOAs are memorandums that define general areas of conditional agreement between two or more parties – the actions of the other party depend on what the other party does (e.g., one party agrees to provide support if the other party provides the materials). MOUs are memorandums that define general areas of understanding between two or more parties – explains what each party plans to do; however, what each party does is not dependent on the actions of the other party (e.g., does not require reimbursement or other support from receiver).

1.2.2. MAJCOM/Numbered Air Force (NAF) Level MOA/MOUs. Most internal Air Force MOA/ MOUs are broad agreements between or among MAJCOMs or NAFs to identify parameters for devel-oping support agreements between subordinate units. At the installation level, these MOA/MOUs are then used as a source document in addressing the provision of services, funding and reimbursement arrangements. However, the actual transfer of funds or other resources is effected by the relevant established functional procedure and not by MOA/MOUs alone.

AFI25-201 1 MAY 2005 5

1.2.3. Functional Area MOA/MOUs. MOA/MOUs can be used between functional areas to docu-ment mutually agreed areas of responsibility, such as:

• Statement of facts.

• Intentions.

• Procedures.

• Policies for future actions.

The functional Office of Primary Responsibility (OPR) (e.g. Civil Engineers, Security Forces) will usually draft, sign and maintain these documents, which are procedural or technical in nature and will not initiate the obligation of funds or manpower for recurring support.

1.3. Major Range and Test Facility Bases.

1.3.1. DoDD 3200.11, Major Range and Test Facility Base, covers certain specialized range docu-mentation. However, base support provided to range users should still be covered by a standard sup-port agreement.

1.4. Support That Does Not Fall Under DoDI 4000.19 or This Instruction.

1.4.1. Support to DoD contractors. If base support is required beyond what is identified in a Request for Proposal (RFP) or contract, the offerer or contractor formally requests the specified base support be incorporated into the RFP or contract. The request is submitted to the Contracting Officer who issued the contract or RFP. If the Contracting Officer agrees to the request, then it is documented in a contract not a support agreement. MOAs, MOUs or Support Agreements will not be used to amend or change contracts.

1.4.2. Agreements In Lieu of War or Contingency Plans. Support agreements are not a suitable means to document support for war, Operations Other Than War (OOTW) or exercise requirements, which should be documented in the appropriate plan (e.g. support/operational/ deployment plans).

1.4.3. Does not apply to agreements covering grants, international agreements, commercial activities, or acquisitions under the Federal Acquisition Regulation (FAR).

6 AFI25-201 1 MAY 2005

Chapter 2

FUNCTIONAL AREA RESPONSIBILITIES AND AUTHORITIES

2.1. MAJCOM

2.1.1. Program Manager:

2.1.1.1. Administers the Command support agreements program.

2.1.1.2. Ensures the level of approval authority for support agreements is in accordance with DoDI 4000.19.

2.1.1.3. Elevates impasses that cannot be resolved at MAJCOM level to HQ USAF.

2.1.1.4. Publishes MAJCOM supplementary guidance to the field.

2.1.1.5. Measures the Command support agreements program

NOTES:

1. HQ 11 WG provides program management responsibility for Air Force Elements

(AFELM) and certain designated Field Operating Agencies (FOA).

2. HQ Air Intelligence Agency (AIA), as the Air Force Service Cryptologic Element (SCE), provides program management and oversight to intelligence units providing direct or indi-rect support to the SCE mission. Will report to Air Combat Command (ACC) SAM.

2.1.2. Financial Management (FM). Provides guidance and training necessary to support financial management personnel and resource managers. Ensures installation Comptrollers accomplish funding annexes, annual budget reviews, and collects reimbursements identified in support agreements.

2.1.3. Manpower:

2.1.3.1. Provides policy and guidance to installation Manpower and Organization Flights for sup-port agreements and related manpower impact assessments.

2.1.3.2. Validates the manpower annex to support agreements and initiates action to ensure trans-fer of the agreed to manpower resources from or to the appropriate MAJCOM.

2.1.4. Civil Engineer. Establishes guidance to cover real property sustainment, restoration and mod-ernization, environmental concerns, utilities support, real property services, support, fire protection and crash rescue support, explosive ordnance disposal support, full-spectrum threat response, and other civil engineer issues in MAJCOM instructions as necessary.

2.1.5. Security Forces. Establishes guidance to cover security concerns in MAJCOM instructions as necessary.

2.1.6. Other Functional Managers. Establish guidance to be included in MAJCOM instructions as necessary.

2.2. Installation Supplier Support Agreement Manager (SAM).

2.2.1. The supplier SAM:

2.2.1.1. Is OPR for the support agreements program at the installation level.

AFI25-201 1 MAY 2005 7

2.2.1.2. Administers the support agreements program and prepares support agreements according to DoDI 4000.19, AFPD 25-2, this AFI and higher headquarters guidance.

2.2.1.3. Distributes receiver requests for support to functional areas for review, coordination, and acceptance.

2.2.1.4. Tasks Functional Area Agreement Coordinators (FAACs) to provide specific provisions, identify direct incremental reimbursable costs, and, in conjunction with the servicing Manpower and Organization Flight, provide manpower figures.

2.2.1.5. Establishes procedures to prevent unnecessary delays in negotiating, revising, and reviewing support agreements.

2.2.1.6. Assists their installation’s Geographically Separated Units (GSUs) and Air Force Ele-ments (AFELMs) in developing their support agreements, if they have no SAM.

2.2.1.7. Compiles the approved specific provisions, manpower requirements, and funding respon-sibilities into a final agreement.

2.2.1.8. Assisted by financial and manpower representatives, provides initial and ongoing training to FAACs and maintains training documentation. The SAM may invite receiver units to attend functional manager training with supplier FAACs and other agencies.

2.2.1.9. Maintains a current list of supplier FAACs, which have been appointed in writing.

2.2.1.10. Is responsible for maintaining a continuity folder and copies of all agreements (i.e. hard-copy or electronic).

2.3. Installation Receiver SAM.

2.3.1. The receiver SAM:

2.3.1.1. Provides an accurate assessment of support needs to the supplier.

2.3.1.2. Provides a single point of contact for coordinating support agreements. If a MAJCOM has more than one receiver unit located on the installation, then one receiver SAM may be identi-fied to represent all of that MAJCOM’s units on the installation.

2.3.1.3. Prevents unnecessary delays in negotiating, revising, and reviewing support agreements.

2.4. Supplier Functional Area Agreement Coordinator (FAAC).

2.4.1. The FAAC:

2.4.1.1. Provides and reviews the specific provisions and terms relating to his or her functional area to ensure that a clear understanding of the required support is documented and that sufficient information is contained to determine the impact of providing the requested support.

2.4.1.2. Negotiates all required changes to specific provisions and terms with receiver’s FAAC.

2.4.1.3. Ensures impasses are worked through functional channels.

2.4.1.4. Contacts the servicing Manpower and Organization Flight and assists in determining manpower requirements for support requested.

8 AFI25-201 1 MAY 2005

2.4.1.5. Provides the required data to Financial Management (FM)/Unit Resource Advisor for development of unit cost factors for relevant categories of support. A suggested method is the Support Agreement Manpower/Cost Data Sheet illustrated at Attachment 8.

2.4.1.6. Ensures billing for reimbursable support is submitted to the FM or Defense Finance and Accounting Service (DFAS) on a timely basis.

2.4.1.7. Reviews agreements, at least annually, as part of the annual budgeting process to assess reimbursement requirements. Identifies to FM significant changes in factors affecting the cost of providing support.

2.4.1.8. Participates in the relevant specialist aspects of the SAM’s support agreement training program.

2.4.1.9. Returns inputs in the format required by the SAM.

2.4.1.10. Informs the SAM of any changes that affect support agreements.

2.5. Installation Manpower and Organization Flight.

2.5.1. The Manpower and Organization Flight reviews all support agreements for manpower impact:

2.5.1.1. If there is a manpower impact, determines its size in conjunction with the supplier FAACs. Documents the required manpower in a manpower annex and certifies it by signing the annex.

2.5.1.2. If there is no manpower impact, enters “No additional manpower is required to support the receiver” and signs in DD Form 1144, Block 11 (General Provisions).

2.5.1.3. After approval and signature by supplier and receiver, forward the signed agreement with manpower annex to the MAJCOM Manpower and Organization Division for validation and trans-fer of required manpower.

2.5.1.4. Assists FM in cost factor development in areas involving labor (e.g., man-hours/ man-years).

2.5.1.5. Assists the SAM in the manpower aspects of support agreements training.

2.6. Installation Financial Management/Comptroller (FM).

2.6.1. The FM is an essential part of a successful agreements program and is tasked with the overall coordination of support agreements for financial impacts. Responsibilities include:

2.6.1.1. Accomplishes the annual budget review and reviews reimbursements collected compared to actual support agreement calculations and billings. Ensure this review is documented to include findings and ensure documentation is forwarded to the SAM for inclusion in the support agree-ment file.

2.6.1.2. Ensures that appropriate costing of activities by the FM resource management system is included in the budget process.

2.6.1.3. Identifies funding responsibilities in support agreements as per DoDI 4000.19 and AFI 65-601, Volume 1, Chapter 7, Budget Guidance and Procedures.

2.6.1.4. Assists the SAM in providing support agreements training.

AFI25-201 1 MAY 2005 9

2.6.1.5. Ensures that the receiver’s reimbursable and non-reimbursable direct incremental cost requirements are included in the supplier’s annual financial plan.

2.6.1.6. Works with DFAS organizations to ensure the accomplishment of actual billing and col-lection for support provided, and to provide appropriate accounting services.

2.6.1.7. Provides financial advice to all parties involved in the agreements process.

2.7. Environmental Impact Analysis Process (EIAP).

2.7.1. The EIAP will be initiated and completed as soon as possible subsequent to the proponent’s beddown request or similar early timeframe. The Environmental Planning Function (EPF) will sup-port the proponent in meeting the EIAP requirements.

2.7.2. Until compliance with the EIAP, no action on the support agreement can be taken which would violate AFI 25-201, IC paragraph 2.7.3., the National Environmental Policy Act (NEPA) or EIAP.

2.7.3. National Environmental Policy Act (NEPA) of 1969

2.7.3.1. Compliance with NEPA is an integral part of basing. Prior to making a final decision, NEPA’s implementing regulations prohibit the commitment of resources which will prejudice the selection of alternatives, and also prohibit taking any action which would have an adverse impact on the environment or limit the choice of reasonable alternatives.

2.7.3.2. Prior to basing at an installation that would be the subject of a request for support agree-ment, the proponent of the action (i.e., proposed tenant) is responsible for evaluating a full range of reasonable alternatives consistent with NEPA, the President’s Council on Environmental Qual-ity (CEQ) Regulations for Implementing the Procedural Provisions of NEPA (40 CFR §§1500-1508), and the Air Force’s EIAP, 32 CFR 989.

2.7.3.3. When a non-Air Force proponent wants to use an Air Force installation (or portions thereof) for their own proposed action, the EIAP regulation at 32 CFR 989.7, Request from non-Air Force agencies of entities (among others) must be followed.

2.8. Installation Security Forces (SF).

2.8.1. SF will conduct all required reviews, focused on security concerns (force protection, resource protection, weapon system security, information security, industrial security, weapon storage, law enforcement and related security services) and will coordinate on the SA during the initial review cycle. Additional reviews are only required if issues (security concerns) arise during the review pro-cess. The review of SA will be completed by the SF FAAC. An additional signature from the Security Forces Squadron Commander (or Commander designate) is not required on the DD Form 1144.

2.9. Installation Staff Judge Advocate (SJA).

2.9.1. SJA will conduct all required reviews for legal concerns and approval during the initial review cycle. The review of the SA will be completed by the SJA or the SJA’s designee.

2.10. Disposition of Support Agreements.

2.10.1. Use AFMAN 37-139, Records Disposal Schedule, to maintain records.

10 AFI25-201 1 MAY 2005

Chapter 3

SEEKING SUPPORT AND WAIVERS

3.1. Seeking Support.

3.1.1. Circumstances which may cause commanders to seek support include:

3.1.1.1. Additions to existing role or mission.

3.1.1.2. Unplanned loss of an existing source of support (e.g. natural disaster).

3.1.1.3. Similar or identical functions being duplicated by nearby DoD components or other fed-eral agencies.

3.1.1.4. Improved economy or efficiency of operation.

3.1.1.5. The closest Air Force installation to an Air Force GSU should provide base support, regardless of parent MAJCOM.

3.1.1.6. Consolidation of functions.

3.1.1.7. Base Realignment and Closure.

3.1.1.8. AFELMs, which need Air Force-unique support, that non-Air Force suppliers cannot pro-vide (e.g. Military Personnel Flight Services, USAF unique uniform)

3.2. Development of Support Agreements.

3.2.1. Air Force organizations will develop support agreements with receivers of that support. The following general rules apply:

3.2.1.1. An agreement should normally cover only one receiver, but more than one receiver can be included if they are funded from the same source as long as the funding source, as identified in Block 11c, is the same.

3.2.1.2. Separate agreements are required for each different supplier.

3.2.1.3. If two organizations both supply and receive support to and from each other, then separate agreements should be developed.

3.2.1.4. Air Force organizations should provide support to other Air Force or DoD organizations when requested, subject to the commander’s determination that the organization has the capability to do so without jeopardizing assigned missions.

3.2.1.5. The support provided to receivers should be equivalent to the standard level of support defined and furnished by the supplier to its own mission, unless otherwise requested or agreed to by the receiver.

3.2.1.6. The provision of small-scale recurring support may not always justify the administrative effort and expense of preparing a full support agreement. In such cases, the agreement approving authority may waive the need to prepare a formal agreement but SAMs should still retain a written record of details to ensure continuity for the arrangement.

3.2.2. MAJCOMs need to ensure the AFRC and the ANG receive the same level of support as other Air Force tenant organizations on their installations. This includes but is not limited to:

AFI25-201 1 MAY 2005 11

3.2.2.1. Base level support services

3.2.2.2. Annual tours

3.2.2.3. Unit training assemblies

3.2.2.4. Peacetime training in all areas

3.2.2.5. Weekend operations

3.3. Waivers to Support.

3.3.1. Requests for a waiver to permit duplication of support functions are appropriate if:

3.3.1.1. It is more economical

3.3.1.2. Provision of support is physically impractical

3.3.1.3. Wartime requirements dictate duplication of facilities or functions

3.3.2. ANG and AFRC receivers do not require a duplication waiver if their requirement is based on a wartime mission of their gaining MAJCOM.

3.3.3. To obtain a waiver, the receiving MAJCOM should send a waiver request to the supplying MAJCOM, including confirmation of whether or not the receiving MAJCOM accepts responsibility for the financial and manpower costs of supporting the waiver. The receiving MAJCOM then requests the waiver from HQ USAF/ILGC. If approved, the waiver will normally be valid for three years and a copy of it should be attached to the relevant support agreement.

12 AFI25-201 1 MAY 2005

Chapter 4

SUPPORT AGREEMENT DOCUMENTATION PROCEDURES

4.1. Identifying the Requirement.

4.1.1. The potential receiver identifies support requirements to the proposed supplier by official cor-respondence and if possible, sets up a face-to-face meeting to clarify respective requirements and capabilities, including mission, equipment types, and personnel. Typical questions to be resolved include:

4.1.1.1. How will the potential receiver request support from the supplier?

4.1.1.2. Who will receive the support?

4.1.1.3. What type and level of support will be required?

4.1.1.4. Are there non-standard conditions related to the request for support?

4.1.1.5. What is the objective or mission supported?

4.1.1.6. When will the support be provided?

4.1.1.7. Have all support categories been considered?

4.1.1.8. Where will the support be provided?

4.1.1.9. Does the receiver have any contracts with contractors where the government has agreed to provide base support?

4.1.1.10. Does the receiver have an existing Requirements Contract that precludes supplier from providing requested support or duplicate services already provided in the contract?

4.1.2. Any doubts as to exactly what support is needed must be clarified before the support agreement is approved.

4.2. Drafting - Support Responsibilities.

4.2.1. The SAM ensures population, equipment, and aircraft requiring support are identified and defined.

4.2.2. The supplier SAM prepares a draft agreement to identify support, using the support category listings found in Enclosure 6 to DoDI 4000.19 and Attachment 5 to this AFI. Categories not included in previously cited references must be approved by MAJCOM.

4.2.3. All affected parties, including the receiver and supplier’s functional areas should review and coordinate the draft agreement. SAMs should ensure that their FAACs fully understand the implica-tions of the agreement in their respective areas and note that questions on the capability to support the receivers are best coordinated directly between FAACs and receivers.

4.2.4. SAMs should ensure that all attachments to support agreements are listed in Block 11 of the DD Form 1144.

4.2.5. The SAM ensures specific provisions in all support agreements are identified and defined.

4.3. Drafting - Financial Responsibilities.

AFI25-201 1 MAY 2005 13

4.3.1. The local FM assists support providers in identifying what the receiver pays for, including its basis and estimated reimbursements, on the DD Form 1144 and its funding annex (See Attchment 9 – Support Agreement Reimbursement Matrix).

4.3.2. FM and DFAS organizations will detail all costs billed to the receiver to include the following:

4.3.2.1. Relevant support categories.

4.3.2.2. Computation details of the reimbursables.

4.3.2.3. Frequency of billing (e.g. monthly, quarterly, or annually).

4.3.3. Interservice and Intragovernmental receivers will normally be charged for direct incremental costs only, as per DoDI 4000.19, paragraph 4.6. Reimbursement policy for intraservice agreements is covered by AFI 65-601, Volume I.

4.3.4. Local FM personnel will record all reimbursement computations in sufficient detail to provide an audit trail by clearly documenting computation methods, factor sources, and results. In addition, the Funding Annex should include sufficient documentation to satisfy the financial concerns of the receiver. The Funding Annex must include program element code, any statutory limitations applicable to the program element code, funds expiration date for obligated purpose, method of reimbursement, method of recording obligations, and name and phone number of the originator of the document.

4.3.5. Reimbursement should be understood to mean the transfer of funds from one agency to another, not the exchange of services.

4.3.6. Note that non-standard rules apply to certain ’Providers of Public Goods or Services’, ’Mutual

Benefits’ and other specific exceptions, as detailed at Attachment 6.

4.3.7. If current Air Force standard base level accounting systems do not directly correlate identifica-tion of incurred expenses with the support categories outlined in DoDI 4000.19, then estimation of anticipated reimbursements should be based on:

4.3.7.1. General and specific provisions of the agreement.

4.3.7.2. Reasonable projections of required levels and amounts of support.

4.3.7.3. Generally accepted cost analysis techniques and principles.

4.4. Drafting - Manpower and Organization Responsibilities.

4.4.1. The installation Manpower and Organization Flight identifies required manpower in the man-power annex to support the additional workload. (Suggested format in Attachment 8)

4.4.2. The manpower annex will detail the following:

4.4.2.1. Computation method.

4.4.2.2. Man-hour or manpower impact by functional area/support category.

4.4.2.3. Total manpower impact in whole numbers.

4.4.3. Current Air Force Functional Account Codes and Air Force Manpower Standards do not corre-late to support categories in DoDI 4000.19. Manpower impacts will be based on:

4.4.3.1. Specific provision of the agreement.

14 AFI25-201 1 MAY 2005

4.4.3.2. Air Force Manpower Standards.

4.4.3.3. Management engineering methods (technical estimates, good operator timing, position manning, operational audits, etc).

4.4.4. The man-hours required to support the additional workload will be totaled and the manpower will be computed using the Man-hour Availability Factor. The Manpower and Organization Flight will document and maintain on file all computations in sufficient detail to provide an audit trail of required manpower.

4.4.5. Interservice Support Agreements causing a manpower impact need to be worked between the Manpower staffs of Headquarters Air Force and the affected service.

4.5. Contract Provided Support.

4.5.1. When a receiving unit requests support that is provided to the supplier via a base support con-tract, a formal support agreement is necessary. Base contract support costs are reimbursable IAW DoDI 4000.19, paragraph 4.6 and AFI 65-601, Vol. 1, as applicable.

4.5.2. Each functional category provided by a base contractor will be documented in broad, general terms IAW enclosure 6 to DoDI 4000.19, or Attachment 5 to this AFI, or the supplier’s support capa-bility catalog.

4.5.3. Neither specific reference to the supporting contract number nor detailed wording contained in the contract will be included.

4.5.4. Receiving activity requests for changes in support must be routed through the SAM and for-warded to the appropriate Point of Contact (POC) for contract impact review. Contract modification costs resulting from receiving activity requests are the responsibility of the receiving activity.

4.5.5. To prevent the appearance of impropriety, the contractor will not serve as the FAAC for the contractor provided support.

AFI25-201 1 MAY 2005 15

Chapter 5

SUPPORT AGREEMENT PROCESSING AND REVIEW PROCEDURES

5.1. Preparing and Revising Agreements.

5.1.1. When a new agreement, revision, review, waiver, or termination is required, SAMs should ensure all relevant functional offices are notified and to this end they must retain POC details for all offices involved. An agreements processing flow chart for the process is at Figure 5.1.

5.1.2. When there is a procedural conflict among MAJCOMs, the supplier MAJCOM procedures will take precedence, as long as the supplier MAJCOM procedures do not significantly impact the receiver’s mission.

5.2. Coordination.

5.2.1. Coordination guidelines are as follows:

5.2.1.1. SAMs produce the initial or revised draft of an agreement and then ensure it is coordi-nated in writing by all parties concerned (See Attachment 7).

5.2.1.2. SAMs staff the agreement to Manpower, Financial Management, the Staff Judge Advo-cate (SJA), the Environmental Planning Function, and Security Forces for coordination and DD Form 1144 continuation statements, and signatures, as appropriate. However, the JA review will occur after all other coordination comments have been made and appropriate changes incorpo-rated. Figure 5.2. shows the manpower review process.

5.2.1.3. SAMs should check the completed coordination sheets for errors or changes that may cre-ate an impasse and transfer any amendments into the master draft agreement.

5.3. Approval and Signatures.

5.3.1. The SAM:

5.3.1.1. Prepares a letter to transmit a copy of the final draft support agreement to the supplier Comptroller for approval signature.

5.3.1.2. Prepares a letter transmitting the original agreement to receiver. This letter should explain any apparent anomalies and their rationale. If receiver requests further changes, then renegotiate the disputed issues and, after legal review of any substantive changes, have the approving official sign and return the original agreement.

5.3.1.3. Obtains final approval signature. Insert the date of Supplier Approving Official’s signa-ture in Block 3 (effective date) of the DD Form 1144 unless otherwise stated in Block 11.

5.3.1.4. Determines the number of copies required and forwards them to the parties concerned.

5.3.1.5. Consolidates correspondence and coordination that documents significant changes, and retains it for the next review cycle.

5.3.1.6. Use of electronic and digital signatures on SAs. IAW AFI 33-321, paragraph 4, Authori-zation of Air Force Records, a record is authenticated when it contains an official signature or seal

16 AFI25-201 1 MAY 2005

indicating the document is genuine and official. A signature or seal may be written, stamped, elec-tronic or digital. The guidance contained in AFI 33-321 now applies to all SAs.

5.4. Review and Revision of Support Agreements.

5.4.1. Annual FM Budget Review.

5.4.1.1. Ensures continued accuracy of estimated reimbursement charges and coincides with bud-get lead-time requirements and Financial Plan preparation.

5.4.1.2. Does not involve a renegotiation unless there are significant changes in support require-ments.

5.4.1.3. Reviews estimated support requirements prior to the annual budget submission. A revised Funding Annex (if required), signed by both supplier and receiver FMs, will then be forwarded to the SAM to be included as an attachment to the agreement.

NOTE: There is no need to route the agreement through the final approval authorities. Figure 5.3. shows an Annual Budget Review flow chart of the process.

5.4.2. Triennial Reviews.

5.4.2.1. Triennial Reviews of Agreements are eliminated. SA reviews are only required when there are significant changes in the requested support.

5.4.2.2. Delete

5.4.2.3. Delete

5.4.2.4. Delete

5.4.2.5. Delete

5.4.2.6. Delete

5.4.3. Minor Revisions. Minor pen and ink changes, including non-substantive modifications, may be made by mutual agreement provided they do not significantly affect manpower or funds.

5.5. Resolving Impasses.

5.5.1. As a general rule, impasses should be resolved at the lowest possible level and only elevated to higher authority when the local negotiation process is exhausted. The following rules apply:

5.5.1.1. If an impasse concerning an overall agreement cannot be resolved between the supplier and receiver within a reasonable amount of time, then both SAMs pass details to their MAJCOM counterparts for resolution.

5.5.1.2. If an impasse relating to a specific support category cannot be resolved at installation level then both FAACs pass details to their MAJCOM counterparts for resolution with copies to their installation SAMs and MAJCOM support agreement program managers. Omit the impasse category of support from the support agreement and include the following statement in DD Form 1144, Block 11, and General Provisions that “Due to an impasse in negotiating support for cate-gory XXXX, this agreement is being processed with an impasse.”

5.5.1.3. MAJCOMs should advise HQ USAF/ILGC of any formal impasse outstanding for more than 180 days.

AFI25-201 1 MAY 2005 17

5.5.1.4. Upon resolution of an impasse, correspondence documenting the resolution process will become part of the agreement file.

5.6. Reduction, Modification or Termination of Support.

5.6.1. If an agreement is unilaterally terminated, suspended or significantly modified with less than 180 days notice to other parties of the agreement, the unilateral party may be billed by affected parties for reimbursement of unavoidable termination or re-procurement expenses incurred up to 180 days following the written notification.

5.6.2. The supplier FAAC will ensure that final charges for support are submitted NLT 90 days after receipt of notification of termination of support.

5.6.3. Installation SAMs are to notify HQ USAF/ILGC, through their MAJCOM SAMs, prior to the issue of any unilateral termination notice.

5.7. Form Prescribed. DD Form 1144, Support Agreement.

18 AFI25-201 1 MAY 2005

Figure 5.1. Suggested Agreement Process Flow Chart

AFI25-201 1 MAY 2005 19

Figure 5.2. Suggested Agreement Process Flow Chart

20 AFI25-201 1 MAY 2005

Figure 5.3. Annual FM Review Flow-Chart

AFI25-201 1 MAY 2005 21

Figure 5.4. Intra/Interservice Funding Annex (Suggested Format).

Page 3 of ___ (Suggested Format) FB9999-05009-210

a. CATEGORY OF SUPPORT b. BASIS FOR COSTING c. ESTIMATE

Alpha/Numeric field *NON-REIM REIM COST Communication Services Toll charges $ 5,302.57

Actual equipment cost <45,970.00>

Mail Postage Metered Mail **$1,000.00

Supply Services Actual cost (Receiver provides MIPR directly to Supply Squadron)***

<9,056.16>

Vehicle Support Maintenance records form 14,380.36

*Recommend this column provide only non-reimbursable costs which are directly attributable to the receiver.

(Should the receiver relocate to another installation, the supplier’s costs would be reduced).

**If over $10,000 annually, item becomes reimbursable.

***One-time charges are not included in annual totals.

Certified by: (Date)

Certifier’s signature block

TOTAL $ 1,000.00 $ 19,682.93

22 AFI25-201 1 MAY 2005

KEVIN J. SULLIVAN, Lt Gen, USAF DCS/Logistics, Installations and Mission Support

AFI25-201 1 MAY 2005 23

Attachment 1

GLOSSARY OF REFERENCES, AND SUPPORTING INFORMATION

References

DODI 4000.19, Interservice and Intragovernmental Support.

DODD 1400.16, Inter-Departmental Civilian Personnel Administration Support

DODD 3025.1, Military Support to Civil Authorities (MSCA).

DODD 3200.11, Major Range and Test Base Facility (MRTFB).

DODD 5010.16, Defense Management Education and Training Program.

DODD 5136.12, Tricare Management Activity (TMA).

DoD 4500.36-R, Management, Acquisition, and Use of Motor Vehicles.

DoD 4525.8-M, DoD Official Mail Manual.

DoD 7000.14-R, Vol. 11A, chpt. 1, Department of Defense Financial Management Regulations (FMRS)

AFI 10-503, Base Unit Beddown Program

AFI 10-802, Military Support to Civil Authorities.

AFI 21-124, Oil Analysis Program.

AFI 24-301, Vehicle Operations

AFI 24-302, Vehicle Management

AFI 32-1021, Planning and Programming Military Construction (MILCON) Projects.

AFI 32-1032, Planning and Programming Appropriated Funded Maintenance Repair, and Construction Projects.

AFI 32-6001, Family Housing Management.

AFI 32-7061, Environmental Impact Analysis Process, as promulgated at 32 Code of Federal Regulations

(CFR) 989

AFI 33-115 Vol. 1, Network Operations (NETOPS).

AFI 34-242, Mortuary Affairs Program

AFI 36-1201, Discrimination Complaints.

AFI 36-2706, Military Equal Opportunity (MEO) Program.

AFI 65-601 Vol. 1, Budget Guidance and Procedures.

AFMAN 15-125, Weather Station Operations.

AFMAN 37-123, Management of Records.

AFMAN 37-139, Records Disposition Schedule.

AFPD 25-2, Support Agreements.

24 AFI25-201 1 MAY 2005

Abbreviations and Acronyms

AFELM—Air Force Element

AFRC— Air Force Reserve Command

AIA—Air Intelligence Agency

ANG— Air National Guard

BOS—Base Operating Support

ESP—Expeditionary Site Plan

DFAS—Defense Finance and Accounting Service

DWCF—Defense Working Capital Fund

EIAP— Environmental Impact Analysis Process

FAAC—Functional Area Agreement Coordinator

FAR—Federal Acquisition Regulation

FM—Financial Management

FOA—Field Operating Agency

GSU—Geographically Separated Unit

IAW—In Accordance With

MAJCOM—Major Command

MO—Manpower Office

MOA—Memorandum of Agreement

MOU—Memorandum of Understanding

NAF—Numbered Air Force

OPR—Office of Primary Responsibility

PACAF—Pacific Air Force

POC—Point of Contact

RDS—Records Disposition Schedule

RFP—Request for Proposal

SAM—Support Agreement Manager

SAMS—Support Agreement Management System

SCE—Service Cryptologic Element

SJA—Staff Judge Advocate

SLA—Service Level Agreements

SOW—Statement of Work

AFI25-201 1 MAY 2005 25

Terms

Air Force Element (AFELM)—Identifies Air Force personnel on duty with agencies outside the Department of the Air Force that are the “Air Force Element” of the agency where they perform duty. An AFELM is not a constituted unit.

Annual Budget Review—A review, prior to submission of the annual budget submission, when installation level financial and functional resource managers review the accuracy of reimbursement charges. This data is used in the computation of future budget requirements.

Approval Authority—An individual authorized to commit resources for the supplier/ receiver.

Basis for Reimbursement (block 7.b on DD Form 1144)— A dollar value for a defined unit of service (e.g., $50 annually per square foot of occupied office space, $50 monthly per assigned military personnel, $800 per each occurrence). Calculations used to determine the basis for reimbursement are recorded in block 12.

Base Operating Support—Base Operating Support is the total support infrastructure for a given unit that supports the mission of an operational infrastructure.

Defense Working Capital Fund (DWCF)— A revolving fund established to finance inventories of supplies and other stores, or to provide working capital for industrial-type activities.

Environmental Planning Function (EPF)— At every level of command, the EPF is one of the key Air Force participants in the EIAP. Provides support and guidance to the proponent to fully accomplishing the

EIAP.

Functional Area—An area of an organization that performs specific duties within a broader operation, such as logistics, civil engineers, operations, etc.

Funding Annex— Financial document which reflects both reimbursable and non-reimbursable costs for an individual agreement. The Supplier’s Comptroller prepares the annex.

General Provisions—Exceptions or additions to printed provisions required by Block 11, DD Form 1144.

Geographically Separated Unit (GSU)—Any Air Force unit separated from its servicing military personnel flight beyond a reasonable commuting distance.

Manpower Annex—A part of the support agreement used to document the manpower impact. The Supplier’s Manpower and Organization Flight prepares this annex.

Manpower Impact—The measured change in a workcenter’s manpower requirement resulting from the implementation of a support agreement.

Memorandum of Agreement (MOA)—Memorandums that define general areas of conditional agreement between two or more parties – what one party does depends on what the other party does (e.g., one party agrees to provide support if the other party provides the materials).

Memorandum of Understanding (MOU)—Memorandums that define general areas of understanding between two or more parties – explains what each party plans to do; however, what each party does is not dependent on what the other party does (e.g., does not require reimbursement or other support from receiver).

26 AFI25-201 1 MAY 2005

Proponent— Each office, unit, or activity at any level that initiates an action and is responsible for complying with the EIAP and ensuring integration of the EIAP at the initial planning stages of a proposed action.

Receiver—An activity, normally a tenant, which receives support from a supplier.

Recurring—Recurring support in reference to formal support agreements documented on a DD Form 1144 is support that continues for a minimum of one year.

Significant Change (in support requirements)—A change in the amount, level or frequency of requirements which would require budget/manpower reprogramming over and above inflation.

Specific Provisions—Support responsibilities negotiated between the supplier and receiver and detailed in Block 12, DD Form 1144.

Standard Level of Support—The level of support provided to receivers, which is equivalent to the standard defined and furnished by the supplier to its own mission.

Supplier—An activity, normally the host, which provides support to receivers.

Supplier Address Activity Code—The first series of the number (FB9999) is the supplier address activity code of the supplying activity.

Support Agreement—A completed DD Form 1144 which documents the support a supplier provides a receiver, and the reimbursement the receiver will pay for that support.

Support Agreement Manager (SAM)— OPR for the support agreements program.

Triennial Review—A complete review of an existing support agreement completed at intervals of no more than three years.

AFI25-201 1 MAY 2005 27

Attachment 2

COMPLETION OF DD FORM 1144

A2.1. Completion of DD FORM 1144 By Block Number.

Block 1: Agreement Number (FB9999-99001-001). The first series of alpha-numeric characters (FB9999) is the Supplier Activity Address Code of the supplying activity. The second series of numbers is the ordinal date consisting of the Year and Julian Date (99001). The third series of numbers (0001) rep-resents the sequential agreement number assigned by the supplying activity.

Block 2: Superseded Agreement No. This is the old agreement number that this new one replaces, if applicable.

Block 3: Effective Date. This is the date of the supplier approval signature, or date of last major review and the date from which triennial reviews are calculated.

Block 4: Expiration Date. Normally the expiration date will be indefinite but a specific date may be agreed upon. If so, the rationale for expiration should be included in Block 11. General Provisions.

Block 5a: Supplier Name and Address. Enter the name of the supplier followed by the SAM’s unit, office symbol, building with room number, postal address and zip code. Block 5b: Supplier Major Command.

Enter MAJCOM or agency name (e.g., ACC, AMC, PACAF, etc.).

Block 6a: Receiver Name and Address. Enter the name of the receiver followed by the SAM’s unit, office symbol, building with room number, postal address and zip code. Block 6b: Receiver Major Command.

Enter MAJCOM or agency name (e.g., DoD Schools, AAFES, DeCA, etc).

Block 7a: Support. Enter the applicable category of support. Funds are not transferable for non-reimburs-able categories; however, DD Form 1144 documentation is required. If additional space is required to identify support requirements place an “X” in the block “Additional Support Requirements Attached”.

Block 7b: Basis for Reimbursement. Total Estimated Reimbursement and Total Estimated Non-Reim-bursement.

Block 7c: Estimated Reimbursement. Enter the estimated cost to be reimbursed to the supplier. If actual costs are known, enter them in this block.

Blocks 8a and 9a: Comptroller Signature. Enter the typed name and grade of the Comptroller. Signature may be placed over the typed entry.

Blocks 8b and 9b: Date signed. Enter the date the FM signs the agreement.

Blocks 8c(1) and 9c(1): Enter the approving authority’s typed name, grade, and title.

Blocks 8c(2) and 9c(2): Enter the approving authority’s organization, unit, and office symbol.

Blocks 8c(3) and 9c(3): Telephone Number. Enter the DSN of designated official. Place “DSN” in paren-thesis prior to the number (i.e. (DSN) 227-9211). If designated official does not have DSN access, enter the full commercial telephone number including area code.

Blocks 8c(4) and 9c(4): Signature. The completion of these blocks by the supplying and receiving activ-ity approval authorities indicate they concur with and approve of the attached general and specific provi-sions of the agreement.

28 AFI25-201 1 MAY 2005

Blocks 10a and 10b: Termination. Enter the typed name, rank, and date of the supplier approval authority at the time the agreement is terminated. The approval authority’s signature will be entered over the typed name and rank.

Blocks 10c and 10d: Termination. Enter the typed name and rank, and the date of the receiver approval authority at the time the agreement is terminated. The approval authority signature will be entered over the typed name and rank.

Block 11: General Provisions Line 11b - Enter the full address of the receiver SAM.

Line 11c - Enter the complete billing address of the supplier’s comptroller.

NOTE: The following suggested statements could be included in Block 11, General Provisions block.

Include only those statements that are pertinent and meaningful to the agreement. General Provisions are continued on an 8 ½ x 11 sheet of bond paper as an attachment to the DD Form 1144.

1. Purpose of agreement.

2. Prescribing Directives. Funding and reimbursement arrangements should be IAW AFI 65-601.

3. Manpower reviews statement and provides an attachment signed by the supplier’s Manpower and Organization Flight.

4. Both the Supplier and Receiver Civil Engineer or Environmental Planning Function (or designated rep-resentative) sign the Civil Engineer or Environmental review statement where there is an environmental impact.

5. Unit Legal review statement is signed by the supplier’s Legal Office.

6. Security Forces review statement is signed by the supplier’s Security Forces Office.

7. Distribution.

8. List attachments (if manpower annex required, list as attachment)

Block 12 - Specific Provisions. (This block will be used as specified). Use plain bond paper to document additional “specific provisions to this agreement.”

A2.2. Examples of Specific Provisions.

A2.2.1. The following examples of specific provisions illustrate the typical level of detail normally included but this can be amended to meet local requirements:

CHAPEL AND CHAPLAIN SERVICES

SUPPLIER WILL: This support includes pastoral ministries, worship services, religious rites, pasto-ral visits, spiritual counseling, and religious education.

RECEIVER WILL: Coordinate chaplain activities and support requirements with the supplier base.

CLUBS

SUPPLIER WILL: This support includes officer, non-commissioned officer, enlisted, all hands, aero, community and other recreational clubs.

RECEIVER WILL: Request services and complies with Supplier’s directives, policies and proce-dures.

AFI25-201 1 MAY 2005 29

Attachment 3

SUPPORT AGREEMENT STRUCTURE AND DISTRIBUTION

A3.1. Structure of a Support Agreement:

DD Form 1144, Support Agreement.

General Provisions as a continuation of Block 11, DD Form 1144.

Specific Provisions as a continuation of Block 12, DD Form 1144.

Funding Annex.

Manpower annex or statement in Block 11, General Provisions, DD Form 1144.

Other attachments as required (building and facilities, vehicles attachment,…