REVISION OF LANGUAGE DEVELOPMENT PROGRAM

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP78-06217A000200020033-7
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 11
• Document Creation Date: December 9, 2016
• Document Release Date: July 13, 2001
• Sequence Number: 33
• Publication Date: July 24, 1961
• Content Type: MF

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Date: 24 anly 1961
MISMORAIMM241Pah Memberso Committee for Language Development
SUBJECT : Revision of language Development Program
RUMEN= : A. Memorandum from DMCI for DD/S0 DB/P, DD/Io
and IG, dated 25 Meech 1961. "Inspector
General2s Non of the CIA Mania,/
25X1A
B. CIA Regulation-No. revised 5 May 1960:
"Lansmeas Nine mue
25X1A
C. Headquarters Re;,, tion revised
25X1A
25X1A
D. 1 April 1961; " re nt Program"
(new format of
1. PROBLEM
a. Per reference As above the DMCI has directedthat certain
amendments be made in Agen regulations
governing foreign language training policies and procedures.
b. The Agency's Language Development Program, references B and
Co above, vas last revised substantively an 5 May 1960, and during
the past year our experience with it has indicated that certain
other changes need also to be considered at this time.
25X1A
c. The immediate problem is to incorporate the IG recommendations
as approved by ma and to review our experience or the past year to
identify other changes vhiCh are necessary in the present regulation.
In addition, the objectives of the program should be reexamined to
determine what changes Should be included which will be put into
effect at later dates.
2? ASSUMPTIONS
a. The Congress has discouraged the Department of State from
ieplementing its proposed language incentive awards program. Other
features of the language development effort at State, however, have
net with approval and are being carried out energetically. These
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measumes are similar to some recoemendations embodied in the 10
Report. It is assumed that the Agency will take note of these
attitudes and emmeelences, but will vie& to continue judicious
eeployment of monetary incentives to language learning as long
as such incentives are deemed necessary.
3. PACTS =ARM ORIN PROBLMN
a. The Agency Languaep Development Prosy= (hereafter the
"Program") was initiated in Pebreary 1957, revised in Decenher 1958,
and again in Way 1960. Se present Program is prescribed in refer.
eases Band C. The cost of language training and development to
CIA exceeds $600,000 per year, and of this amount nearly *218,000
is expended for Language Awards.
b. In his ctor General's Survey of the CIA ?minim
ftme, August Va a, 4 f p?T Graf!1a survey of
Agency* language training policies and practices and noted certain
deficiencies and recommended a number of improvesents. Some of
these recommendations affected DIVP specifically, ethers the Agency
as a whole. These recommendations are presented as TAB 1 to this
stnAy. (N)/P action pursuant to the reccomendationeliffiCting that 25X1A
Component only is reflected reference 14 above.)
has brought to light other, lesser deficienlinkligligiiiii
25X1A e. ftperience over the past year with
Program. Briefly, these are as fellovs:
(1) eeestions have been reified as to the necessity for
testing personnel vho have claimed a language proficiency
in the past per Perm 44444 Language DaVe Record, but Who
no longer wish to cialm--or be tested for?language pro-
25X1A ficLange. ffeeM111.1111This question has been
enamored in se p
(a) permitting the employee to withdraw his claim,
and thus "cleaning up the record of delinquent or
unsubstantiated claim," and
CO continuing the record of the claim for profi-
ciency, but indicating that this claim is not
backed up by a current Agency language proficieacy
test.
(2) The status of Form 444e itself requires clarification.
It is no longer used as a basis for a claim of language
competence, but those already completed (a) are used to
establish anniversarv dates for awards purposes La6
25X1A and (b) do provide a Eglrecord
proficiency. They complement amre
current inventories developed from test results as well
as from rosters of the Agency's professional linguists
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Lute rpreters, trognalators, radio monitors, and language
instructors
(3) Off-duty ties language training "undertaken at the
respiest of a sponsoring cemproant, vithaat overtime con-
25X1A pensation..." poses a legal question whit% rmy re?e
further review by the General Counsel.
25X1A
00 Paragraph OT
ripahas been invalidated by
disoontineance Staff concept.
(3) The present system and schedule of incentive language
awards has proved to be not sufficiently floodble to meet
satisfactorily' and fairly the differing language needs of
the three Deputy Directarates. The administration and
granting of language awards, involving artless tcy the
Office of Training (CO), operating officials and career
boards and panels, have revealed an und.ersteadable lack of
uniformity as to intemetation of the present system and
its intent. Tim "maintenance award" is especially suscep-
tible to confusion and question.
(6) Many, the question has been seised as to the pro-
priety and necessity for having a language awards system,
particularly vises (a) the language training is sponsored
and paid for by the Agenoy, and (b) when langage profici-
ency shall be nide a prerequisite for assignment to speci-
fied positions, as recommended by the Inspector General.
4? DISCUSSION
a. The incorporation of the 10 recommendations in the proposed
revised regulation and the inclusion of other administrative clarifi-
cations which have shown theneelves to be necessary is a Job old&
can be done quite quickly, because then* is very litftle 110011 for
disagreement on most of these points.
b. Dy far the met difficult teak involved in the revision of
the regulation is that of deciding the future course or the Program
and implementing future changes. The Program has, to date, undergone
two major phases of developments Phase I, February. 1957 Hay 1960,
and Phase II, Sty 1.960 to the present. A brief review of these
phases viii serve to Characterise the trend of the Program.
Phase I
This period was one of experimentation and information-
gathering. It encouraged the oldest possible partici-
pation in foreign language learning at all levels and
was aimed at the creation of a pool or broad base Of
Agency foreign language competence in as way languages
as possible. The greater emphasis was placed on
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voluntary efforts in acquiring language proCiciency.
More emphasis was laid on publicising the need for
language study and en getting it under way than on
directing it toward specific goals.
Naturally the results were mixed. We gained experience
in language training, testing, and administration at
Ageney-wide Interest in language study vas
stimulated. That there were quantitative gains in the
Apnoea inventory of languages la undeniable. iNs the
other hand, the hoped-for Invest scale, tested inventory
or foreign language proficiencies did not naterialize.
It became apparent, too, that stony participants had
little likelihood of using their new or increased pro
-
Miami' for the Amor s benefit. It also appeared
that galas in mammon Ungava and in the upper levels
CC proficiency were trall. It also became obvious that
in were overloading facilities for training with marginal
trainees in a time of shrinking balgets and tight per-
sonnel ceilings. Thus we had to concentrate our efforts
ea those who needed or who would need useful levels of
competenos in order to "discharge the responsibilities or
the Agency."
Phase It
25X1A Nonce, the I May 1960 revigesi=filrE reflected a
shift in emphasis "frame rest in language
25X1A study to a rater concern for the utility s
studied." (Oohed from INFORMATION SIM
I May 1960. This Shift was accomplished in pert airectly
by assigning the responsibility for certification of lan-
guage awards to Career Beards and Panels. The effect of
this provision has been somewhat attenuated due to the
necessity of "keeping faith" with those who had already
begun programs of study. Weever, continued gains can be
expected from the inevitable increase in management con-
trol which will result as our objectives become clearer.
During the early part of this phase VLTP elementary train-
ing in four vorLi languages wen discontinued but vas remand
In Ibrch 1961 on a more discriminate basis with the coopera-
tion of sponsors. We can be reasonably sure that those now
entering VW? elementary training have a foreseeable need
for proficiency in the language they are studying.
There has been a concerted drive during this phase to com-
plete required proficiency testing of those who had claimed
any degree et reafiatiency.
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Also during this phase anew tutorial language training
program was introduced is cider to meet the special needs
of 13D/P. There has beenatendeany to overuse this facil-
ity rather than make Aell use of regularly scheduled
courses. This situation is being corrected by MVP and
OIR Galas, as recomemeded by the /O.
Overall gains during this period have been continuing,
if net spectacular, and there is a growing demand for
training in the less common languages. At the same time,
the Language and Area Basal of the Office of Training
has suffered some key personnel losses and in general is
finding it difficult to locate and employ suitable, quali-
fied language teachers and language teaching supervisors
who have had linguistics training. Attention is being
devoted to this problem. In addition, the LAS has been
investigating and experimenting with the use of programed
instruction and members of the faculty have attended In-
structor Training Workaops conducted by. the CIS lima-
tional Specialist.
As net. in an earlier paragraph, there have home nunher
at hitches and delays in the full implementation of the
5 Yoba. 1960 Program! These are due in part to inadequate
definitions, in part to differences in interpretation,
and in part to deficiencies in forward planning. The In-
spector General's recommendations are directed at the last.
In all of this history there is a dearly diseernible trend.
The language Development Program has became tammesingly
preoccupied with the management of language development in
the Agency and the language awards program has gradually
been reduced to a tool for promoting compliance with the
goals of management. We wish to contend that foreign lan-
guage training is but ene of the several broad areas of
profOssional training required by personnel or this Agency.
Sbe awards program was made necessary by a serious defici-
ency in foreign language cappetence. A special lassottmet
is juatifiable only so lenges there is a serious deficient,
to be corrected. it seems reasonable to acmes that every
gain in the direction of a, well-planned and nausea program
of language development will decrease the neoessity, for
awards correspondingly.
Mayor the minor administrative and bureaucratic stealing
block, have been ironed out, and worldng rules and procedures
have been agreed upon. After some initial delays and comiNuilon,
the several career boards and panels are effectively meeting
their responsibilities with respect to the language incentive
awards. Several components have made very real progress to-
ward setting language training objectives.
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there is still a need, however, for longer-range estimates
of language training requirements and for timely tftnenittal
of these requirements to the Language and Area School,
Office of Training (LAS/TR). My reqpirements we mean, here
a coordinated statement of intention to train specified
nudbers of individuals at certain approximate tines and at
specified levels of instruction, with specified goals. It
reflects a managessont decision to meet'previously est lea-
gunge objectives on assumption that the normal method
of training is in promised classes, This does not imply
the abandonment of flexibility; it makes possible additional
flexibility in meeting training requirements without the
sacrifice of efficiency and economy. Tutorials will still
be necessary and there most still remain an additional
"spot requirement" system to, meet genuine contingency
situations. Systematic training Unmet axe objectives,
however, can cut down oaths nueber of contingency situa-
tions which we will meet laths future,
The picture, then, is one of gradual progress inmost re-
spects, although a very close and detailed examination of
our foreign language inventory might continue to show some
serious lacks. These eome to light especial:rides we need
suddenly tom= a contingency task force or to staff a field
station in a newly critical area. There are still, for ex-
ample, not enough operational personnel who have a useful
copprehensive proficiency in Spanish, Prendh or Portuguese!
Nevertheless, although we have not taken "a great loip for-
"lard," there is a discernible, favorable trend toward
(1) broader recognition of the need and utility of
foreign language proficiency and its acceptance as
an essential professional qualification;
(2) clearer definition of language Objectives and
requirements;
(5)a managed or planned language training effort;
pi) clarification and understanding of administrative
SOP's" related to the implementation of the Program
(5) full recognition of the need constantly to improve
language training methods and techniques as well as
the competence or instructional personnel;
(6) acceptance of the need for cooperative, coordinated
advance planning in order to develop the necessary
training capability, either internal or through out-
side arrangements.
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e* Program guidelines plannimg and implementation. A. good
many things can be done to irov. program menagement and admin-
istration, and most have already been identified. They include
(1) ?complete and naintain on a current (planned) basis
the identification of categories of personnel, positions,
or proportions of positions for 'which specified language
proficiencies are required.
Wake language prodicismoy tests mandatary (they already
are) and enforce this aspect of the regulations.
(3) Impend the "lameness inventory" in order to record
current (tested) proficiencies, past (untested) profici-
encies, and competence, of the Apogee professional
linguists.
CO Write into the Program the need for advanced planning
and programing at lengnage training and for timely communi-
cation of requirements to the Orrice of Training.
(5) inarify the legal qnestion posed by Agency-directed or
sponsored off-duty training without overtime compensation.
(6) Sharpen the definitioms or criteria for sponsorship of
directed, voluntary, and tutorial training.
d. Do we still need wards? In our ?plaice, the answer
nest be es? H suggest that we ihcuId continue to employ some
system of monetary incentive language awards
(1) for the immediate future--in order to keep faith with
theme employees Anhui* undertaken language achievement
or maintenance progrmms under the existing Program;
(2) for the immediate and Short-tare future, at least--
to maintain and to increase the momentun of language
training;
(11) Intl' we get our overall objectives (needs) more
firmly stated, and
(b) until we have brought our "Inventory" up to a "safe"
level?that needed to accomplish the Agency's business
and that additional competence or reserve we met have
an hand to provide flexibility for personnelmenagemsnt
and career development and to enable us to meet estimated
operational contingencies.
Our long-tern objective should be, however, to reduce constantly the
scope of monetary incentive awards and to ley primary reliance on
personnel plamnimg and operational programing. In this connection,
it will be necessary to spell out each step in the abandonment or
the smartie system as clearly as possible, well in advance of the
cut-off date.
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e. How can we improve the awards system? Assuming that we
do continue to use incentive awards, there seem to be a number of
steps which night be taken to make the system more effeotive and
more efficient.
(L) We can insist on a training effort geared pri..
mistily to approved objectives (mnattunktioo for
positions and for ooetimgencies).
(2) At the same time we can make allows**e for career
development, ani one wey of doing this could be by en-
couraging the development of personal proficiency in
not one but two languages, generally one world language
and one less common laneuage. The individual seine in
broader qualification; the Agency gains lamer* flexible
assignment possibilities far each person, thus easing the
placement task and allowing for wider rotation.
(5) We can permit the Cemnomemt (Dainty Direetarates or
Career Boards) to desigeate the languages for which they
wish to authorise no Inoentive or for which they wish to
authorise a higherliemium in Corder rapidly to earrect a
critical derinieney, without requiring chooses in the
overall Headquarters
()) We can create a ewe award category to put a premium
on the actual use of a specified proficiemer in certain,
specified areas or situations wherein the looms profi-
ciency is at special significance--in addition to other
basic professional skil1s...4o the accomplishment of the
Agency's business.
(5) Ay so doing, we might--after an announced warning
period--restrict achievement awards to achievement accom-
plished through voluntary training. At the same time,
however, we should encourage supervisors toys* directed
training as the preferTed means of nesting the Agences
language needs.
(6) Likewise, after a due warning period, we could drop
minter/snot awards in all but critical languages in short
supply and limited opportunity for use, and such maintenance
should be on a tesaymme basis.
It is emphasized that these suggestions hinge entirely on the
concepts of specialised language proficiencies as requisite for cer-
tain categories of personnel and prerequisite to assignment to cer-
tain positions, and the identification of language objectives in term
of career development and contingency planning. It should to emphasised
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that deadlines should be so set as to provide sufficient lead time
and avoid excessive use of waivers of requirements which vitiate
the requirements system.
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Inspector General's Recommendations apassWBILkapeRes.
Recommendation 234 "The pp& Instruct all supervisors to observes
in reqmesting language training, the principle that training in
regular classes is the normal and most effective method, and that
resort to tutorial training abaLl be had only in exceptional eases
and where reguired by securt4y considerations, unavoidable presiure
or times or other valid reason."
Approved.
Reacemendation 12: "DCI issue instructions that Agency Regulations
be avoided bra-Fing mew provisions (a) directing the Deyerty-Directors
to identity the categories of exployees for lobos: specified degrees of
language proficiency are reqpired and to tie these standards of pro-. z
fieltrarty into promotion practices, and (b) directing the Deputy Dir..
actors to identify those positions, or that proportion of positions,
in each overseas station that maybe filled only by individuals who
possess, to the degree specified, the language commonly used in the
general area of that station."
Appeared, with the modification that standards of language proficiency
will not be tied into promotion practises. DOA to draft amended
Ageney-Regulation.
Reecemendation isEsue instructions that Agency Regulations
be further amended to sake language proficiency testing, according to
Agency standards, mandatory for all emp3.cryees who are required to have
language skill."
Approved. W8 to draft amended Agency Regulation.
Recommendation 14: "DD/P direct that in all long-range operational
planning the inplications with respect to possible radical change in
requirements as to the nature or extent of language capabilities be
carefully considered and that the conclusions reached be regularly
and promptly communicated to the DTR."
Approved.
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Recomaendation 1 : "Dpir give clearer recognition to the necessity for
developing in larger numbers than at the present rate linguistically
qealifled area specialists." -
Approved,
Recomeendation 16: "The Deputy Directors take such measures as smy be
necesemey to came all staff employees under their Jurisdiction edio
claim langeage eoppetenee to sOmit to the Office of Training tests
at the earliest pranticeble remoet,."
APProved.
Recommeedation l7z "Dp/P consider the advisability of placing directly
on the division chiefs the responsibility for all scheduling of langaage
training for personnel in the division amd for monitoring that ttheler
carrying out of the language training thus scheduled."
Approved with the understanding that the Clandestine Services Career
Service hnel have a secondary responsibility for scheduling and noni-
taring language training which transcends the requirements of a single
division or for an employee who seeks language training in an area
different from his present assignment.
Recommemdatioe 24: "The DD/ e establish admit= standards of training
and ex5iiliarfir ease officer apprenticeship Including general
preparatory, basic skills, language and advanced operational traininnp
and that be determine the feasibility by. experiment of some form of
overseas familiarization as a part of the apprentice period."
Approvedg on the understanding that overseas familiarisation as a pert
of the apprentice period will be primarily on-the-job training.
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