The U.S. Government’s Overseas Presence
(CT:GEN-618; 06-03-2025)
(Office of Origin: M/SS)
2 FAM 131 Types of diplomatic and consular posts
(CT:GEN-618; 06-03-2025)
a. A post type represents a distinct collection of posts identified by their roles within missions, the rank of the Foreign Service officers at the posts, and by the types of functions performed by the posts. The specific application of post types to individual posts can be found in the Bureau of Information Resource Management's Master Reference Data.
b. A permanent bilateral mission is an embassy established and maintained by the U.S. Government and headed by an ambassador to conduct normal continuing diplomatic relations between the Government of the United States and the government of one other country or authority. In some instances, a single mission may maintain relations with more than one country or authority, but the relations are always one-to-one. The ambassador is the principal diplomatic representative of the U.S. Government at post. Embassies normally operate from facilities located within capital cities. There are seven categories of embassies under State GTM Bureau’s Overseas Staffing Model, ranging from very large to very small. An embassy is comprised of all U.S. agencies at post represented in the country or area, such as USAID, Foreign Agriculture Service, Foreign Commercial Service, Peace Corps, military groups, law enforcement, and Defense attachés, as well as the traditional functions concerned with political, economic, commercial, labor, consular, science, public affairs, management, and related affairs. All agencies at post are under chief-of-mission (COM) authority except those agencies under the command of a U.S. area military commander. Branch offices of an embassy are part of an embassy’s facility located and staffed in a city other than the capital of a country.
c. Special bilateral or multilateral missions are types of missions established to achieve a diplomatic purpose of a special character distinct from the normal continuing diplomatic functions. These missions have a purpose which has a logical end-point or conclusion, such as the negotiation of an agreement.
d. Multilateral missions are U.S. missions accredited to international organizations instead of foreign governments. Two are in the United States: the U.S. Mission to the United Nations (USUN) and the U.S. Mission to the Organization of American States (USOAS).
f. Legations are diplomatic establishments headed by a minister. The United States has had legations in the past but none at this time.
g. U.S. interest sections (USINTs) operate under the auspices of a protecting power in a country with which the United States has no diplomatic relations. USINTs are structurally and functionally similar to embassies. The senior U.S. officer is the equivalent of a consul or consul general, not an ambassador, but holds COM authority. The USINT in Tehran is operated by the Government of Switzerland and located at the Swiss Embassy in Tehran.
h. U.S. liaison offices (USLOs) are precursors to the establishment of embassies. There are no USLOs established at this time.
i. Consulates general (CGs) are the offices and staff of consuls general, who are the senior consular representatives of the U.S. Government at their overseas posts and regional consular areas. Consuls general are subordinate to ambassadors who hold COM authority, and operate from facilities located within major cities. In some instances, consuls general may hold COM authority themselves, such as at Consulates General Hong Kong and Jerusalem. Consulates general range from large to small offices. They perform a range of functions and often host non-State agencies.
j. Consulates are the offices and staff of consuls, consular representatives of the U.S. Government, who are subordinate to COMs and operate from facilities within major cities of foreign countries. Consulates are usually smaller than CGs, contain few, if any, non-State personnel and focus mainly on consular functions.
k. Consular agencies are staffed by local-resident agents who provide non-visa consular services. Many of these agents are resident U.S. citizens and most work only part-time.
l. American presence posts (APPs) are small diplomatic and consular presences of the U.S. Government in foreign countries, usually staffed by one U.S. direct-hire officer that contain no locally employed (LE) staff. APPs are legally consulates, and the opening or closing of an APP is governed accordingly (see 2 FAM 411.1). (See 2 FAM 133, American Presence Posts, for a full explanation.)
m. Virtual presence posts (VPPs) have no resident U.S. employees, either U.S. citizens or LE staff. VPPs allow established posts to provide remote diplomatic engagement with important cities or regions. Generally, they entail regular, targeted visits from mission personnel, ongoing public affairs activities, and “virtual” engagement by means of websites dedicated to the city or region.
n. Focused, Lean, Efficient, eXpedient (FLEX) Posts and Missions are specially designated Embassies with staffing caps for U.S. direct hires (USDH) and locally employed (LE) staff, with a reduced administrative and programmatic footprint (see 2 FAM 133).
2 FAM 132 American Presence Posts (APPs)
2 FAM 132.1 The Purpose of an APP
(CT:GEN-535; 02-21-2019)
APPs are one type of post in a range of options for U.S. diplomatic representation. Their utility is limited to places where an embassy requires a mission presence focused on narrow objectives, with limited capabilities, affordable within existing mission resources with relatively small augmentations of funds for security and facilities. They are available to limit the potential demand for general-purpose consulates and to retain presence in locations where the U.S. Government requires diplomats but cannot afford, or does not require, a fully capable consulate. Overseas missions create APPs largely from existing resources; this tends to limit demand for APPs in locations with no current presence.
2 FAM 132.2 Background
(CT:GEN-617; 04-16-2025)
a. The American presence post (APP) concept was advanced in 1998 as a means to provide focused American diplomatic presence in specific locations. An APP is “a special purpose post with limited staffing and responsibilities. It is established as a consulate under the Vienna Convention” (see 2 FAM 111.2).
b. The key concepts associated with APPs are:
(1) Simplicity: One or two American officers, with very few associated local employees;
(2) Focus and proximity: Exploiting opportunities to influence key national sectors in a location associated with those sectors, for example in the APPs in France, trade and public diplomacy;
(3) Low-cost, self-financed: Established in locations where the local infrastructure can provide the means of operations, such as commercial office space or from the government of the receiving state, commercial communications, and skilled staff. Sponsoring embassies are expected to provide most of the resources to establish and maintain an APP;
(4) Unclassified operations: No start-up or recurring costs or manpower associated with vaults, 24/7-cleared American guards, controlled access areas, control of classified materials, installation and maintenance of classified communications systems; and
(5) No visa or routine passport/ACS operations: Provision of emergency American Citizens Services only; avoidance of costs and manpower associated with visa issuance (no teller windows or associated hard-line); no consular waiting area; and no archive of visa application information.
c. The Department of State has no plans to establish “APP embassies,” although the distinction may be unimportant. For example, Embassy St. George’s, Grenada, has only one U.S. resident officer, with its nonresident U.S. ambassador based in Bridgetown, Barbados. St. George’s matches the definition of APP in all respects but name.
2 FAM 132.3 Experience
(CT:GEN-535; 02-21-2019)
a. Proposals for establishing APPs have arisen, in all cases, from the cognizant embassies and have been based on one of two phenomena:
(1) An embassy perceives an exploitable opportunity to advance mission goals by relocating some of its assets to an APP location where there is no established presence; and
(2) The Department downsizes a consulate general or consulate, and the embassy successfully advocates the retention of a very limited U.S. officer presence.
b. In either case, establishing or closing an APP must:
(1) Meet priority objectives of the Mission Strategic and Resource Plan (MSRP) and Bureau Strategic and Resource Plan (BSRP);
(2) Represent a demonstrably more efficient or effective use of existing mission resources;
(3) Be approved by the Under Secretary for Management (M); and
(4) Be notified to Congress when it constitutes a post opening or closing.
c. In most cases, proposing embassies observe that they are spending mission resources to provide special services in the target location, usually by temporary duty (TDY) coverage from the embassy. The embassy will often believe that it can improve product and reduce resource outlays by moving an officer to the target location.
2 FAM 132.4 Security and Administrative Support
(CT:GEN-535; 02-21-2019)
a. The security standards for consulates apply to APPs. There is no cost or efficiency gain associated with APP status per se. The Secure Embassy Counterterrorism and Construction Act, Public Law 106-113 (FY-2000), requires APPs to meet mandatory 100-foot setback requirements, or be granted a waiver. Other Overseas Security Policy Board security standards apply as well. To most efficiently contain costs, the expectation is that most APP facilities would be located in commercial office spaces; waivers to setback would be granted in accordance with the law; and security standards for an office in a tenant of commercial office space would be applied, providing adequate but lower-cost security.
b. APPs should receive most administrative support from the associated embassy, to keep local staffing as small as possible.
c. Cost containment results from the very small presence, limited consular function, and the lack of classified infrastructure and maintenance.
2 FAM 132.5 Opening or Closing an APP or Removing the APP Designation
(CT:GEN-535; 02-21-2019)
a. As APPs are legally consulates, the procedures outlined in 2 FAM 400, Opening, Closing, or Changing the Status of a Foreign Service Post, are to be followed when opening or closing an APP.
b. To remove the APP designation/status from a post, a request should be made from the Assistant Secretary for the appropriate regional bureau through the Director General to the Under Secretary for Management (M). The request should include any resource implications (i.e., if additional positions are required, are they to be reprogrammed from another post or are new positions requested?).
2 FAM 132.6 Conclusions
(CT:GEN-535; 02-21-2019)
APPs are by definition designed to utilize limited means for limited goals. They serve niche markets in the Mission Strategic and Resource Plan (MSRP). Requiring embassies to provide the resources for opening APPs constrains their proliferation. They are a “presence” option as a low-cost, defined alternative to small consulates.
2 FAM 133 Flex Posts
(CT:GEN-618; 06-03-2025)
2 FAM 133.1 The Purpose of a FLEX Post (Focused, Lean, Efficient, eXpedient)
(CT:GEN-618; 06-03-2025)
A FLEX post is an option for U.S. diplomatic representation in locations where the United States Government (USG) requires an agile diplomatic presence focused on narrowly scoped responsibilities and specifically defined critical mission objectives. FLEX enables more rapid establishment of an in-person presence based on a lean operating model that uses limited resources for smaller staffing and facilities. FLEX provides an option in relatively safe environments for focused and effective diplomatic engagement where the United States does not currently have a physical presence or where a smaller, more nimble platform would better support U.S. foreign policy objectives.
2 FAM 133.2 FLEX Requirements
(CT:GEN-618; 06-03-2025)
a. Presence to scale: To establish and maintain FLEX posts in remote, underserved host countries and locations, special policies and standards apply. FLEX principles include rapid deployment, flexibility and adaptability, security and safety, and resource management.
b. Reduced footprint: To maintain Bureau of Overseas Building Operations (OBO) and Diplomatic Security (DS) approvals for facility selection, FLEX post staffing may not exceed four USDH and eight LE staff. Employed Eligible Family Members and Local Guard Force, subject to 2 FAM 133.4) are authorized and do not count against this staffing limitation.
c. Low-cost: New FLEX posts are established consistent with Department authorities and applicable requirements in leased locations, such as but not limited to commercial or host-government office space, and should utilize commercial communications and available local staff expertise.
d. Minimal scope: FLEX posts are not required to meet the OBO Project Standard Requirements of 15 FAM 680. FLEX posts occupy facilities leased by the USG and may not be established in a location requiring new construction. A simplified space requirements program prioritizes necessities to expedite the facility search and fit-out phase and reduces time-to-open when compared to conventional lease fit-outs.
e. Security environment: The FLEX Model is designed to operate in a relatively safe environment where the limited number of USDH personnel aligns with the Secretary of State and Chief of Mission security responsibilities.
f. No Controlled Access Area (CAA): FLEX avoids the significant time and cost associated with building and maintaining CAA space for classified communications systems. Some facilities that meet Overseas Security Policy Board, DS, and Diplomatic Technology requirements may be able to process limited classified cables and communications remotely, if and when that option becomes available.
g. Regional and Global Support Services: FLEX posts have a limited management platform that reports directly to a dedicated, bureau-funded support center, including security services (regional security officer) and building operations (facility access cards) local support, and all services typically provided by International Cooperative Administrative Support Services.
h. Minimal IT infrastructure: FLEX posts do not have a dedicated server room or use workstations. Staff will work within the Department’s Sensitive But Unclassified network using Department-issued devices. Mobile phones, voice-over-IP, and virtual switchboards replace landlines. Technical security systems support is provided through a systems interface cabinet. Any additional technology identified to meet requirements will be based on assessments of the local security and infrastructure environment.
i. Consular services: FLEX posts may be equipped with one or two consular windows depending on volume as determined by CA and regional bureau. Temporary duty consular officers may provide routine visa and American citizen services while regular staff will respond to emergency American citizen services situations. Fees must be paid in advance through contracted services or Pay.gov and no accountable items will be stored on site.
j. Housing: FLEX posts utilize turn-key solutions such as fully furnished, fully serviced housing (hotels, serviced apartments, vacation rentals, etc.) to replace furniture and appliance pools and reduce make-ready requirements, eliminating the need for a warehouse. Housing options must meet security and safety requirements and be approved by DS and OBO.
k. Vehicles: FLEX posts maintain a small fleet of Government-Owned Vehicles (GOV) available for self-drive, including for the Chief of Mission (COM). There are no dedicated drivers, but some LE staff may have driving duties when COMs must attend meetings or events with high-level officials. Personally owned vehicles (POV) shipments are not authorized; however, personal use of GOVs is authorized under other authorized use provisions consistent with 14 FAM 432.3.
l. Reporting Requirements and Other Action Requests: Reporting requirements are reduced for FLEX posts to prioritize host country engagement and the advancement of critical foreign policy objectives.
(1) Regional and functional bureaus must assist FLEX posts in meeting any reporting requirements that have not been waived;
(2) FLEX posts are generally exempt from all non-Congressionally mandated action requests, including demarches, data calls, and requests for action plans, unless the request falls into one of the following categories:
(a) U.S. national security priorities;
(b) Priority bilateral issues with the host country;
(c) Essential UN system votes on critical topics; and
(d) Mission-critical operations taskers related to security and safety as advised by Diplomatic Security and/or the Regional EX.
(3) When such action requests are made of the FLEX post, the scope of the information requested from FLEX posts must be limited to the extent possible. For requests that apply to FLEX posts, desk officers should coordinate with the requesting office to determine a response scope that avoids overburdening the post; and
(4) FLEX posts are exempted from the reports listed in 2 FAH-5 H-113 Appendix A.
m. Integrated Country Strategy (ICS): FLEX posts prioritize a limited set of critical, in-country diplomatic activities that are defined in a FLEX-specific, limited Integrated Country Strategy.
n. Visitor support: VIP visits should be limited in duration, footprint, and frequency . Temporary Duty (TDY) visits or assignments generally should be limited in duration and frequency and such TDY travelers should expect little, if any, support from post.
o. Records management: All records at FLEX posts are created and maintained digitally. All records retirement functions are completed by the regional or global support center.
p. Special Management Support: M/SS will provide special FLEX-specific support to post management officers in the regional bureaus who support FLEX posts to help the bureau ensure FLEX benefits, applicable waivers, and other requirements are implemented and met.
q. Loss of FLEX Status: FLEX posts must not exceed the staffing limits contained in paragraph b above and adhere to the requirements set forth in paragraphs a. through m. If post is out of compliance with the requirements for more than 30 days, it will automatically lose the special designation and all policies and operating exemptions, waivers, and benefits will be withdrawn immediately, including any OBO and DS waivers and exceptions, which could result in suspension of operations consistent with 2 FAM 440.
2 FAM 133.3 FLEX Establishment and Closing
(CT:GEN-618; 06-03-2025)
a. A FLEX post must:
(1) Meet priority objectives of the applicable joint regional strategy;
(2)Represent a demonstrably efficient and effective use of Department resources;
(3)Follow the process outlined in 2 FAM 410;
(4)Be approved by the Secretary or the Under Secretary for Management (M), as appropriate; and
(5) Not be opened (including any obligation of funds to open the post) until applicable congressional consultation and notification requirements have been met .
b. Secure Embassy Construction and Counterterrorism Act (SECCA) requirements and the Overseas Security Policy Board (OSPB) security standards for chanceries apply to new facilities intended as FLEX posts. Local guard presence is threat-dependent.
c. FLEX posts are intended to be opened in lower-threat environments and to follow the FLEX physical security exception process described in 12 FAM 315. However, some or all benefits of the FLEX operating model can be applied to existing posts that meet or will meet non-security related requirements in 2 FAM 133.2 regardless of threat environment, on a case by case basis.
2 FAM 133.4 Other Agencies
(CT:GEN-618; 06-03-2025)
a. Chief of Mission and regional bureau may allow another agency to fill one of the four USDH positions or one of the eight LE positions in cases where other-agency interests align with the priorities set out in 2 FAM 133.2. Since FLEX posts are located often in remote and small countries, other-agency interests may better be served through regular TDY visits. All official travelers must follow post travel policies.
b. Since FLEX posts do not have an ICASS platform, any other agency is responsible for all costs for staff assigned to the post or on TDY visits.
c. If another-agency presence requires a larger staffing and/or facility footprint beyond the FLEX limitations, the request must be carefully considered by the COM and regional bureau, in consultation with OBO, DS, The Bureau of Budget and Planning, and Regional Support Center, to determine an accurate incremental cost of supporting the position(s) and the implications for the cancelation of the FLEX status for the post.
d. The 2 FAM 410 process, Opening, Closing, or Changing the Status of a Foreign Service Post, cannot begin until the other agency agrees to fully fund the incremental cost of increasing the staffing and facility footprint, if needed, including the cost of all support services and direct costs to the Department related to losing the FLEX benefits, such as having to acquire additional support staff.
2 FAM 133.5 Opening, Closing, or Changing Status of a FLEX Post
(CT:GEN-618; 06-03-2025)
a. FLEX posts must follow the procedures outlined in 2 FAM 410, Opening, Closing, or Changing the Status of a Foreign Service Post when opening or closing.
b. To seek FLEX designation/status for a post, the Assistant Secretary for the appropriate regional bureau should make a request to M. The existing post must meet or be able to meet the FLEX staffing and operational requirements. Regional bureaus should consult M/SS, OBO, and DS, as each post is unique and the specific requirements may vary.
c. To remove the FLEX designation/status from a post, the regional bureau must first obtain M approval through an Action Memo, detailing the reasons why the post’s FLEX designation/status can no longer help the Department meet its foreign policy goals. If approved, the regional bureau may request to initiate the 2 FAM 410 process and convene all stakeholders to assess the appropriate diplomatic footprint and applicable requirements.
(1) Careful consideration should be given to expanding beyond the FLEX model, which will result in the loss of benefits that enable the smaller footprint, an increase in security and facility requirements, and higher costs than the initial project to open the FLEX post. Congressional consultation and notification may also be required, depending on the extent of the proposed change in staffing;
(2) If the need to increase staffing beyond FLEX is due to another agency’s request, that agency must agree to fully fund all costs associated with the 2 FAM 410 process; and
(3) The Department will not approve an NSDD 38 request beyond FLEX staffing requirements without a 2 FAM 410 review, and the approval process described in this section.
2 FAM 133.6 Staffing Levels for FLEX Missions
(CT:GEN-618; 06-03-2025)
a. The Department has capped FLEX staffing at four USDH and eight LE staff total.
b. FLEX posts are intended to maintain small facility size and minimal staffing, and growth beyond FLEX limitations requires a new 2 FAM 400 procedure to determine the need and appropriate diplomatic footprint, including facility size.
2 FAM 133.7 Support for COMs of FLEX Missions
(CT:GEN-618; 06-03-2025)
a. U.S. law and Presidential directive define COM authority. (See 2 FAH 2 H-110 for more information on COM authority.) COMs of FLEX missions should exercise their authorities to protect the flexibility of the FLEX mission to which they are assigned.
b. The COM of a FLEX mission may decline requests or inquiries from Washington that interfere with mission-critical goals and objectives and may rely on regional and domestic service providers for operational and select programmatic requirements.
c. Consistent with U.S. law and Presidential direction, the COM of a FLEX mission may decline demands that are inconsistent with the limited mission and staffing set out in this FAM chapter. Regional bureaus should provide additional support to COMs of a FLEX mission as necessary to support U.S. diplomacy and staff development.
2 FAM 134 through 139 unassigned