GAO REPORT TO CONGRESS ON THE 'NEED TO IMPROVE LANGUAGE TRAINING PROGRAMS AND ASSIGNMENTS FOR U.S. GOVERNMENT PERSONNEL OVERSEAS'

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP78-06215A000300040010-1
• Release Decision: RIPPUB
• Original Classification: U
• Document Page Count: 12
• Document Creation Date: November 17, 2016
• Document Release Date: June 15, 2000
• Sequence Number: 10
• Publication Date: May 22, 1973
• Content Type: MF

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2 2 MAY 1S7
I ORA DW FOR: Deputy Director for Management and Services
SUBJF F : GAL) Report to Congress on the "I ded to Improve
Language Training Programs and Assignments for
U.S. Government Personnel Overseas"
1. During the past two years the Government Accounting Office con-
ducted a review of U.S. Government foreign language training programs and
the language aspects of assigning personnel overseas. The final report
was submitted to Congress can 22 January 1973. This aaaaoranc summarizes
some of the conclusions and r nations that may have relevance to
CIA even though intelligence agencies were excluded from the report because
of the classified nature of their activities. It is probable that in
future budget hearings Congress may ask CIA about its language activities
with reference to the GAO findings.
2. Irwnd
In 1960 Congress a=mded the Foreign service Act making it
congressional policy that all members of the Foreign Service speak the
principal language of the countries to which they are assigned. The
amendment further stipulated that those positions requirinng the incum-
bent to be proficient in a foreign language be so identified and staffed.
Although this legislation is not directly applicable to all agencies
and departments operating overseas, GA) believes it represents congressional
policy toward all agencies having requirements for language-proficient
personnel. The GAO study therefore was made to identify, on a Government-
wide basis, the magaitudde of foreign language training activity, to evaluate
the fulfillment of foreign language needs, and to determine whether im-
provements were needed in the use of resources devoted to foreign language
training in the U. S. Government.
3. Principal. Conclusions of the GAO Report
--- The intent of the 1960 legislation has not been net. During
the past decade there has been little progress toward sub-
stantially raising the foreign language competence of U.S.
representatives overseas.
--- In virtually all agencies studied, language-essential positions
were staffed with individuals lacking the required foreign
language coaetence.
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Key factors hindering the attainment of increased foreign
language c~oageartonce overseas were:
a. lack of emphasis on the use of personnel with foreign
language capability;
b. lack of criteria for identifying foreign language re-
quiremants ; and
c. inadequate proficiency testing.
- Part-time language training is a poor substitute for full-
time training and should not be used as such.
-?- More systematic coordination of foreign language training
and research is needed among federal agencies.
4. GAO f~ieco noul-tions
.?- Assign language-proficient staff to positions overseas that
require language eompetesace.
--- Provide ,individuals with appropriate language training before
they assume duties in lame-essential positions overseas.
--- Develop adequate criteria for overseas posts to use in identi-
fying the le el of proficiency required for each position.
--- Periodically reassess language requirements for overseas
positions.
--- Develop tests and testing procedures that will adequately
measure language proficiencies.
--- Provide for mandatory retesting of individuals before assign-
ing Haws to language-essential position overseas.
-?- Periodically retest all those with language proficiency so
that assignments to duty or training can be made on the
basis of current capabilities.
?.- Expand coordination of individual research programs and
develop procedures for ^aking research results available
Gcwerameent-wide.
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,fj
S. Also noteworthy is that GAO has eHphasized to Congress that they
believe the present level of foreign language training in the executive
branch to be sufficient to meet current needs, provided a greater weight
is given to the language capability factor in selecting people for over-
seas assignment.
6. The agersries studied generally agreed with GAO' s conclusions and
recommendations and cited corrective actions planned or already taken.
For example, the State Department advised GAO in August of 1972 that it
had invited those agencies involved to meet and begin discussions as to
the moat effective means of achieving closer coordination and the sharing
of resources. This is being done through the expanded activities of the
Interagency Language Roundtable of which t7TR's Language School is a m Ober.
STATINTL
Alfonso Rodriguez
Director of Training
Distribution:
0f1-Adse.
2 - DTR
1 - C/LS
1 - EA/P
OTR/L~:kgf (16 May 1973)
Rewritten: OTR/EA/P-:kaj (21 May 1973)
STATINTL
STATINTL
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1 MORAlNNDUM FOR: Deputy Director for Intelligence
SUBJECT General Accounting Office Report on Language
Development and Language Training
During the past two years the General Accounting Office has
been conducting a review of U.S. Government foreign language
training programs and the language aspects of assigning personnel
overseas. The final GAO report was submitted to Congress on
22 January 1973. We were not on the initial routing, but we have
procured copies of the document. The principal conclusions and
recommendations, relating primarily to language development and
coordination of language training, are directed to overt agencies
and departments of the government such as State, Defense, AID,
USIA, ACTION, and others. However, because CIA has need for
language skills equal to those agencies cited above, it is quite
probable that CIA's performance with regard to these subjects may
arise in future budget hearings before the Congress. Therefore,
for your information I have extracted from the GAO report 1) the
digest at the beginning of the report and 2) specific conclusions
and recommendations in the body of the report which may have
relevance to this Agency.
Alfonso Rodriguez
Director of Training
ILLEGIB
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L T ; L~ OIs7,'', , ; NEED TO Ii PROVE 1
PROGRAMS AND ASS I GNIMENTS R U.S.
uEPORT i'0 .~IiL CO:. S
GOVERNMENT PERSONNEL C 'v LUSF4c
B-176049
D I G E S T
WWY THE REVIEW WAS MADE
in 1960 the Congress enacted legis-
lation requiring that foreign lan-
guage competence of key U.S. Govern-
ment representatives overseas be
improved substantially to increase
the effectiveness of U.S. represen-
tation abroad 'both with the "man in
the street" and with foreign gov-
ernment representatives.
The General Accounting Office (GAO)
made its review to
--determine the scope of Federal
Government foreign language train-
ing,
--appraise progress in improving
foreign language skills of U.S.
Government representatives over-
seas after enactment of the
legislation, and
--evaluate effectiveness of U.S.
foreign language training pro-
grams.
FINDINGS AND CONCLUSIOAJS
The intent of the 1960 legislation
has not been met.
About 18,000 persons from 60 Federal
entities, excluding intelligence
agencies,~are trained annually in
about 150 foreign languages. The
cost, including student salaries
and allowances, totals about
$60 million. (See p. 13.)
The cost of language training at the
Foreicn Service Institute of the
Department of State, including tui-
tion, student salary, and related
expenses, ranges from $9,500 for a
20-week course in French in Wash-
ington, D.C., to $56,000 for a
21-month course in Arabic at Beirut,
Lebanon. (See p. 13.)
Little progress was achieved in the
past decade toward substantially
raising foreign language competence
of U.S. representatives overseas.
Language-essential positions not
satisfactorily filled in the State
Department increased from 33 percent
in 1963 to 43 percent in 1972. (See
pp. 17 and 19.)
In virtually all agencies language-
essential positions were staffed
with individuals lacking the re-
quired foreign language capability.
Key factors hindering attainment of
increased foreign language com-
petence overseas were
--lack of emphasis on use of per-
sonnel having foreign language
capability,
--lack of criteria for identifying
foreign language requirements, and
--inadequate proficiency testing.
(See pp. 17 and 38.)
Part-time language training pro-
grams should not be used as a sub-
stitute for full-time training.
Part-time programs do not increase
JAN. 22. 1973
Tear Sheet
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D i G E S -1
in 1960 the Congress enacted legis-
lation requiring that foreign lan-
guage competence of key U.S. Govern-
ment representatives overseas be
improved substantially to increase
the effectiveness of U.S. represen-
tation abroad 'both with the "man in
the street" and with foreign gov-
ernment representatives.
The General Accounting Office (GAO)
made its review to
--determine the scope of Federal
Government foreign language train-
ing,
--appraise progress in improving
foreign language skills of U.S.
Government representatives over-
seas after enactment of the
legislation, and
--evaluate effectiveness of U.S.
foreign language training pro-
grams.
FIIVD1 JCS :LVD CO?'C_~USTOJ S
The intent of the 1960 legislation
has not been met.
About 18,000 persons from 60 Federal
entities, excluding intelligence
agencies,-are trained annually in
about 1,50 foreign languages. The
cost, including student salaries
and allowances, totals about
$60 million. (See p. 13.)
NEED TO IMPROVE Ll i.U~ GE T .~
PROS RAGS AND ASSIGNMENTS y U . .
GOVERNMENT PERSON N;EL O'','rkSE/S
B-176049
The cost of language training at the
Foreign Service Institute of the
Department orf State, including tui-
tion, student salary, and related
expenses, ranges from '9,500 for a
20-week course in French in Wash-
ington, D.C., to $56,0000 for a
21-month course in Arabic at Beirut,
Lebanon. (See p. 13.)
Little progress was achieved in the
past decade toward substantially
raising foreign language competence
of U.S. representatives overseas.
Language-essential positions not
satisfactorily filled in the State
Department increased from 33 percent li
in 1963 to 43 percent in 1972. (See
pp. 17 and 19.)
In virtually all agencies language-
essential positions were staffed
with individuals lacking the re-
quired foreign language capability.
Key factors hindering attainment of
increased foreign language com-
petence overseas were
--lack of emphasis on use of per-
sonnel having foreign language
capability,
--lack of criteria for identifying
foreign language requirements, and
--inadequate proficiency testing.
(See pp. 17 and 38.)
Part-time language training pro-
grams should not be used as a suib-
stitute for full-time training.
Part-time programs do not increase
1
JAN
. 22, 1973
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pro;=iciency to a professional level
in time for use by those assigned
over eas. (See p. 53.)
The Defense Language Institute of
tie Department of Defense has not
established an adequate inventory
cf command-sponsored foreign .lan-
guage training programs or fulfilled
its responsibilities for management
control and technical supervision.
Se,-_ p. 6a )
The three Foreign Service Institute
schools overseas generally were ef-
fective in training students to a
minimum proficiency. Some students,
however, were unable to successfully
complete the course because of in-
adequate aptitude or motivation
that should have been apparent be-
fore their enrollment. (See p. 57.)
--Developing adequate criteria for
overseas posts to use in identi-
fying the specific level of
proficiency required for each
overseas position. (See p. 50.)
--Periodically reassessing language
requirements for overseas posi-
tions and developing tests and
testing procedures that will
measure adequately language pro-
ficiencies of individuals.
(See p. 51.)
--Mandatory retesting of individuals
before assigning them to language-
essential positions overseas.
(See p. 51.)
--Periodically retesting those with
language proficiencies. (See
p. 51.)
More systematic coordination among
Federal agencies of foreign lan-
guage training and research is
needed. (See pp. 74 and 83.)
OR SUGG: 'ST 10NS
The Secretaries of State, Defense,
and Agriculture; the Director,
United States Information Agency;
and the Administrator, Agency for
International Development, each
should develop a plan of action
for his agency to improve use of
foreign language capabilities,
giving particular attention to:
--Assigning language-proficient
staff to positions overseas with
language requirements. (See
p. 51.)
--Providing individuals with appro-
priate language training before
they assume duties in language-
essential positions overseas.
(See p. 61.)
The Secretaries of State; Defense;
and Health, Education, and Welfare
and the Director of ACTION should
expand their coordination of in-
dividual research programs and de-
velop procedures for making re-
search results available on a
Government-wide basis. (See p. 81.)
The Secretary of State should re-
strict enrollment in advanced lan-
guage programs overseas to students
demonstrating the aptitude and
motivation (see p. 61) and should
initiate (1) a program for inter-
governmental use of foreign lan-
guage training resources (see
p. 62) and (2) an interagency
committee whereby foreign language
training resources can be used to
the maximum extent by U.S. agen-
cies. (See pp. 62 and 90.)
The Secretary of Defense should
revise the Department's instructions
on foreign language training. These
should clearly establish the au-
thority and responsibility of the
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Defense Language Institute and the
military commands to set up and
give final approval to such train-
ing. in addition, the military de-
partments' responsibility for com-
plying with the instructions should
be emphasized. (See p. 72.) The
Secretary of Defense should in-
quire into the propriety of the
operation of those Department of
Defense language schools not under
the technical supervision of the
Defense Language Institute. (See
p. 72.)
The Department of State. however,
identified problems with GAO's rec-
ommendation for periodic proficiency
retesting, saying that it was ex-
ploring alternative means of devel-
oping timely and accurate inventor-
ies of foreign language proficiency
levels of its personnel.
The Civil Service Commission should
request and publish information
from all agencies having foreign
language training programs available
for use by other agencies and (see
p. 91) should require agencies
planning to initiate new language
training activities to furnish
advance notice. (See p. 91.)
AGENCY ACTIONS AND UNRESOLVED ISSUES
Agencies involved generally agreed
with the above conclusions and rec-
ommendations and cited actions
taken or planned for correction.
MATTERS FOR CONSIDERATION
BY THE CONGRESS
Indications are that the present
level of foreign language training
in the executive branch is suf-
ficient to meet current needs,
if a greater weight is given to
the language capability factor in
selecting people for overseas posts.
The Appropriations Committees and
other committees of the Congress may
want to (1) explore this matter
with the agencies involved in con-
nection with their future fund re-
quests and (2) require the executive
branch to periodically report on
progress made toward assigning
language-proficient personnel to
key posts overseas.
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CHAP` ER 4 -- FACTORS CONTRIBUTING TO IlIADEQTJdR LANGUAGE CAPABILITIES
SU`MA-RY AND CONCLUSIONS
Personnel with foreign language proficiencies were not utilized to
fill the language-essential positions. Other positions were not accurately
identified as to their language requirements, and criteria for making such
identifications were generally lacking.
In our opinion, the high rate of unfilled language-essential positions
and low utilization of language-proficient personnel, indicate a general
need to place greater emphasis on the importance of either assigning
language-proficient personnel to language-essential positions overseas or
assigning persons to training prior to assignment overseas.
We believe the staffing of language-essential positions could be
improved by establishing definitive criteria for designating those positions
requiring a proficiency and by maintaining an accurate inventory of language-
proficient personnel for use as an assignment and training tool.
RECOti NDATIONS
We recognize that the problems discussed above exist in varying degrees
in the agencies. We believe, however, that greater use of language
capabilities can be achieved in each agency. We recommend that the
Secretaries of State, Defense, and Agriculture; the Director, USIA; and the
Administrator, AID, after considering the findings discussed in this report,
develop plans for their agencies to achieve improved use of language
capabilities.
Particular attention should be given to:
--Placing appropriate emphasis on assigning language-proficient staff
to overseas language-essential positions.
--Establishing adequate criteria for post use in periodically
identifying the specific level of proficiency in a foreign language
for each overseas position.
--Periodic review and reassessment of the language requirements for
overseas positions and development of tests and testing procedures
that will adequately measure the language proficiencies of the
personnel needed for such positions.
--Mandatory retesting of personnel for language proficiencies prior
to assignment to duty in language-essential positions.
--Periodic updating of personnel language-proficiency test records
so that assignments to duty or training can be made on the basis
of staffs' current capabilities.
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 Am Ah
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CHAPTER 4 -- FACTORS CONTRIBUTING TO INADEQUATE LANGUAGE CAPABILITIES
SU1,14ARY AND CONCLUSIONS
Personnel with foreign language proficiencies were not utilized to
fill the language-essential positions. Other positions were not accurately
identified as to their language requirements, and criteria for making such
identifications were generally lacking.
In our opinion, the high rate of unfilled language-essential positions
and low utilization of language-proficient personnel, indicate a general
need to place greater emphasis on the importance of either assigning
language-proficient personnel to language-essential positions overseas or
assigning persons to training prior to assignment overseas.
We believe the staffing of language-essential positions could be
improved by establishing definitive criteria for designating those positions
requiring a proficiency and by maintaining an accurate inventory of language-
proficient personnel for use as an assignment and training tool.
RECOI NDATIONS
We recognize that the problems discussed above exist in varying degrees
in the agencies. We believe, however, that greater use of language
capabilities can be achieved in each agency. We recommend that the
Secretaries of State, Defense, and Agriculture; the Director, USIA; and the
Administrator, AID, after considering the findings discussed in this report,
develop plans for their agencies to achieve improved use of language
capabilities.
Particular attention should be given to:
--Placing appropriate emphasis on assigning language-proficient staff
to overseas language-essential positions.
--Establishing adequate criteria for post use in periodically
identifying the specific level of proficiency in a foreign language
for each overseas position.
--Periodic review and reassessment of the language requirements for
overseas positions and development of tests and testing procedures
that will adequately measure the language proficiencies of the
personnel needed for such positions.
--Mandatory retesting of personnel for language proficiencies prior
to assignment to duty in language-essential positions.
--Periodic updating of personnel language-proficiency test records
so that assignments to duty or training can be made on the basis
of staffs' current capabilities.
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CH?PTER 5 -- STATE DEPARTMENT OVERSEAS LAECRTA_GE = ,SING PROGR4MS
AND SCHOOLS
CONCLUSIONS
We believe that it is impractical to attempt to train personnel to
a minimum professional proficiency through the post part-time language
programs because of the time required to learn a foreign language.
Achieving a significant increase in proficiency through these programs
generally requires all or most of employees' tours of duty. Accordingly,
this program should not be used to train those requiring a minimum
professional proficiency for their assigned duties unless they arrive,at
the post with a language proficiency which is close to the required
level.
Because the post programs alone cannot realistically be expected
to bring personnel to a high level of proficiency, we believe that
personnel selected for language-essential positions overseas should have
acquired the necessary proficiency prior to departure for the post.
We believe that enrollment to State Department overseas field
schools should be limited to those students showing a strong aptitude
and desire for learning and that the results of preliminary training
generally given prior to the advanced training overseas should be more
thoroughly examined to screen out those students not likely to succeed.
RECONIENDATIONS
We recommend that the Secretaries of State, Defense, and Agriculture;
the Director, USIA; and the Administrator, AID, require appropriate
language training of staff before they assume duties in language-essential
positions overseas.
We also reconmiend that the Secretary of State have procedures
established to restrict enrollment in the advanced language programs
at the field schools to students demonstrating the requisite aptitude
and motivation.
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C?LAP'TER 7 -- NEED FOR MORE SYS`i !i -TIC COORDIP ITION OF FOREIGN LANGUAGE
RESEARCH AND DEVE LOPr-IET T
RECOvnT1,TDATIO1jS
We recommend that the Secretaries of State; Defense; and Health,
Education, and U;elfare; and the Director of ACTION, establish the goal
of optimal sharing of the costs and benefits of future research related
to foreign language training and that they:
1. Expand their efforts toward a systematic and voluntary
coordination of their individual research programs.
2. Develop procedures for making research results available on
a Government-wide basis.
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