IMPROVING LANGUAGE CAPABILITY AT CIA

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP84B00890R000400050002-9
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 22
• Document Creation Date: December 19, 2016
• Document Release Date: December 6, 2006
• Sequence Number: 2
• Publication Date: April 28, 1981
• Content Type: MF

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DD/A S1-4548/2
MEMORANiTTh i FOR: Deputy Director of Central Intelligence
FROM : Max Huge 1
Deputy Director for Administration
SUBJECT: Improving Language Capability at CIA
REFERENCE: Memo to DDA from DDCI dtd 11 Mar 81,
same Subject
Responses to the series of questions raised in reference
memo are attached. Separate answers are keyed to each of your
inquiries. This also provides useful background information
for the 6 Nay 1931, Executive Committee meeting.
Max Hugel
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I. Progress being made to ensure that language training
requirements are being properly carried out.
Approximately 50% of Language School training is
accomplished by means of non-scheduled (i.e., specially
arranged) courses. This pattern is indicative of the
responsiveness of the Language School to training demands,
but also illustrates the ad hoc nature of a high percentage
of requirements. More precise and longer term planning of
requirements will enable the customer to better utilize the
program of scheduled courses and thereby improve cost
efficiency. Each directorate has been asked to submit
predicted requirements for full- and part-time training at
the Language School and part-time training at Headquarters
and Rosslyn beginning with the fall 1981 term. Attached is
a list of these requirements as well as a list of requirements
which the Language School currently lacks the resources to
teach.
From statistics maintained on a weekly basis the
Language School can keep you informed periodically of the
correlation between predicted and actual enrollments.
Reports concerning Language Development Committee (LDC)
activities and the Language Incentive Program are made each
quarter. An annual LDC report summarizes the statistics and
activities of each fiscal year.
Recommendations:
a. that submissions of language training requirements
from each directorate be required annually which will result
in better language training planning and a regularization of
the language program through larger classes run on a more
definite schedule,
b. that the LDC report quarterly on the effectiveness
of the Language School responses to language training
requirements levied upon it,
c. that reporting on the status of the LIP continue on
a quarterly basis and that the activities of the total
program be summarized in an annual report.
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LANGUAGE SCHOOL TRAINING REQUIREMENTS
Fiscal Year 1982
Part-time
Headquarters
Part-time
C of C
Full-time
C of C
Arabic
15
2
2
Armenian
-
1
-
Bulgarian
-
-
1
Chinese
39
7
5
Danish
-
-
1
Dutch
1
2
2
French
52
17
32
German
24
3
30
Greek
-
5
3
Hebrew
-
1
-
Hungarian
4
-
1
Indonesian
1
5
4
Italian
16
5
11
Japanese
4
1
1
Korean
1
-
-
Persian (Dari)
-
-
1
Persian (Farsi)
3
-
1
Polish
2
3
2
Portuguese
10
4
4
Romanian
1
-
1
Russian
109
16
7
Serbo-Croatian
-
-
1
Spanish
70
13
22
Swedish
-
-
2
Thai
-
2
4
Turkish
2
4
3
Vietnamese
1
6
-
355
97
141
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EXTERNAL TRAINING REQUIREMENTS
Part-time
*Afrikaans
1
Azerbaijani
1
Byelorussian
1
*Burmese
Georgian
2
Kazakh
1
Kirghiz
1
Latvian
1
Moldavian
1
Russian (Advanced
2
Scientific and Economic)
*Slovenian
1
*Swahili
1
Tajik
5
*Ukrainian
1
19
Full-time
1
*NOTE: With the exception of the full-time Burmese requirement
from OSO all others are FBIS requirements. The Foreign
Service Institute School of Language Studies can teach
the five asterisked languages. Arrangements are in
process to bring in a Tajik instructor to teach five
FBIS employees in a concentrated eight-week course
during the summer of 1981.
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II. Relation of Language Competency to Promotion
All components of the Agency agree that language
competency is an important factor which should be considered
when ranking personnel for value to the service and promotion
when it is essential to effective job performance. It is
also an indication of an individual's overall potential.
However, since many Agency positions do not require the use
of a language, possession of language skills cannot be a
uniformly applicable factor in determining whether or not a
person should be promoted. At the present time, language
skill is not a mandatory requirement for promotion.
The DCI area, DDS1T and NFAC Language Development
Committee representatives report that their directorates
would like to retain this flexibility. In the DDO where
language skill is more essential, long range plans include a
requirement for Operations officers occupying positions
necessitating foreign language competence to achieve a
tested proficiency of R-3, S-3 in at least one foreign
language before advancing to the mid-career level.
Recommendations:
a. that language skill not be made a mandatory
requirement for promotion throughout the Agency,
b. that DDO proceed with plans to include by 1985 a
requirement for demonstrated proficiency in one foreign
language for Operations officers to advance to mid-career
level.
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III. Attainment of Fluency Levels
1. In response to the question as to whether or not
language students are developing the needed levels of
functional language ability, we must reluctantly report that
at least for students enrolling in beginning language courses
(both full-time and part-time) the answer is clearly "no".
Although Language School language training produced 176 gains
in speaking proficiency including 30 new professional level
(S-3 or better) language speakers in FY 80, only four of
those cases involved students who entered training with 0 or
0+ language ability. The average proficiency attained by
students in FY 80 was between levels 1 and 1+. Tables A, B,
C, and D contrast length of training attended and proficiency
levels attained by language group. In researching the
probable causes for this obvious shortfall in speaking skill
acquisition, we have analyzed Language School training data
for FY 80 and arrived at the following conclusions. The
main contributing variables (listed in order of importance)
which are related to the development of oral proficiency
across languages are:
a. The number of hours actually spent in training.
b. The difficulty of the language being studied.
c. Language aptitude as measured by the Modern
Language Aptitude Test (MLAT).
d. The number of other languages already learned.
(See also Table E--Regression Analysis Summary.)
2. Of these four variables only the relative difficulty
of the language being studied is a constant. Since relative
language difficulty is dependent on the degree of similarity
between the-?target language and English, (i.e., the greater
the language "distance" the more difficult the target
language is for Americans), it is essentially a given factor
beyond our control. The other three variables, however, can
be influenced or even controlled by managerial decisions
such as:
a. increasing the number of hours students actually
spend in training;
b. selective screening of prospective language
students which would increase average language aptitude;
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c. giving personnel who have demonstrated the
ability to learn foreign languages priority in future
language study.
Actions in each of these areas would require, however, some
modification of existing policies and procedures.
3. The number of hours spent in training correlated
higher with attained language proficiency than any other
variable. Hence the greatest potential gains would come
from removing constraints in this area. This could be
accomplished by lengthening courses and/or actual duration
of training. The number of hours established for beginning
language courses was based on FSI guidelines established to
provide sufficient training time for the best students to
attain desired proficiency levels. (See Table F). Lengthen-
ing of standard courses to provide sufficient time for
average students to reach professional proficiency levels
would very likely mean doubling the length of existing
courses.
4. The feasibility of the above option must be seriously
questioned since students are not now remaining in training
for current course durations, which makes it impossible at
this time to accurately predict the optimum length of
training for average students. We don't know what proficiency
level most would attain if left in training long enough to
complete the present courses. The average length of training
for students during FY 80 is compared with the published
course lengths for our major languages in Table G. It is
obvious that improvements must be made in this area.
5. Pre-screening of prospective language students for
minimum language aptitude or demonstrated language learning
ability would result in more gifted students and allow
classes to cover more material in the time available. This
would increase the level of proficiency attained. The
Language School currently accepts all students and routinely
provides special tutorial help for those who have difficulty
mastering the language. It is quite possible that this
extra training assistance is one of the reasons for the
moderate correlation found for FY 80 between ending proficiency
and MLAT scores. (The partial correlation between these
variables after controlling for hours of study was 0.21).
Other conditions which clearly reduce this correlation value
are purely statistical in nature. Both correlated variables
had severely restricted ranges in FY 80. Since students
were not left in training very long they only attained
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minimal proficiency levels no matter what their aptitude
scores might have been; and for one reason or another, the
FY 80 students did not represent the full range of language
aptitude, but tended to cluster around the below average and
average categories with almost no students in the superior
range. MLAT categories of FY 80 Language School beginning
full-and part-time students are given below:
Not Tested:
48
Poor:
13
Below Average:
29
Average:
38
Above Average:
22
Superior:
1
(The one student in FY 80 with a superior MLAT score remained
in training fewer than five weeks.) Footnote 3 to Table F
provides additional information relative to MLAT scores of
Agency personnel.
Recommendations:
a. that Agency offices be directed to commit language
students to remain in training for the advertised length of
the course,
b. that the Language School conduct a study to determine
optional course length by language group to enable average
students to attain minimum professional proficiency,
c. that each entering language student have on record
an MLAT score which is not more than five years old,
d. that the Language School accept students with below
average language aptitude by exception only,
e. that in instances of inadequate resources, the
Language School give priority to students who have demonstrated
a successful language learning ability.
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WEEKS OF TRAINING AND SPEAKING PROFICIENCY
OF FY 80 FULL-TIME BEGINNING STUDENTS
French, Italian, and Spanish
Weeks of
Speaking
Proficiency
Row
Training
0+
1
1+
2
2+_
3
3
3
4
6-10
1
6
1
2
6
5
2
1
1
3
3
6
3
21-25
1
2
6
1
2
2
1
Total
3
6
20
13
16
6
1
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WEEKS OF TRAINING AND SPEAKING PROFICIENCY
OF FY 80 FULL-TIME BEGINNING STUDENTS
Dutch, German, and Swedish
Weeks of
Speaking
Proficiency
Row
Training
0 0+
1
1+ 2 2+ 3
Total
0-5
6-10
11-15
1
16-20
1
1
21-25
26-30
31-35
Column
Total
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WEEKS OF TRAINING AND SPEAKING PROFICIENCY
OF FY 80 FULL-TIAIE BEGINNING STUDENTS
Greek, Polish, and Russian
Training
Speaking Proficiency
Row
6-10
11-15
26-30
36-40
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WEEKS OF TRAINING AND SPEAKING PROFICIENCY
OF FY 80 FULL-TIME BEGINNING STUDENTS
Chinese, Japanese, and Korean
Weeks of
Training
0-5
6-10
11-15
16-20
21-25
26-30
31-35
36-40
41-45
Column
Total
Speaking Proficiency
0 0+ 1 1+ 2
Row
Total
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TABLE E
REGRESSION EQUATION SUMMARY
Dependent Variable: Speaking Proficiency at End of Training
Full- and Part-time Students - FY 80
Independent Variables
Multiple R
Hours of Training Received
.62
Language Difficulty
.64
Total vILAT Score
.68
Number of Other Languages Learned
.69
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TABLE F
Estimated Average Proficiency Levels
Attained in Language Training
Weeks of
Uninterrupted Students's Demonstrated Ability
Language Training Below Average Average Superior
French
Italian
Spanish
Dutch
German 32 2 2+ 3
Swedish
Greek
Polish 44 2 2+ 3
Russian
Chinese
Japanese
Korean
These estimates are based on the combined experience of
the CIA Language School and the School of Language Studies
of the Foreign Service Institute. They are useable as
guidelines for expected achievement, but should not be
interpreted as guarantees because:
1) student motivation and diligence will also have an
impact on learning,
2) these data are merely estimates because gaps in the
empirical duration-of-training data base preclude a
more precise analysis, and
3) the basis for these estimates includes FSI data
which might be derived from experience with students
possessing higher language aptitude than typical
Language School students. (The average Agency MLAT
score falls at the 25th percentile for FSOs. The
average ?,ILAT score for all FY 80 Language School
students fell at the FSO 32nd percentile, and the
average HLAT for CY 80 CT classes fell at the FSO
42nd percentile.)
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TABLE G
The following table gives the advertised course length,
average scheduled length of training, and average attendance
for students receiving end-of-training reports in the most
popular full-time beginning language courses.
LENGTHS OF TRAINING TIME
Number
Advertised
Average Length
Average Length
of
Course
of Training
of Training
Language
Students
Length
Scheduled
Attended
French
29
24 weeks
17.6 weeks
16.1 weeks
German
19
32 weeks
18.9 weeks
16.5 weeks
Spanish
40
24 weeks
15.6 weeks
13.8 weeks
Attendance remained a serious problem with part-time
classes, as well. Nearly one-fourth of those who enrolled
in part-time classes completed fewer than ten hours of
instruction. This is 8% worse than last year. Furthermore,
those who completed sufficient training to receive end-of-
training reports missed, on the average, one out of every
three classes.
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IV. Recruitment of Language Competent Personnel
The Office of Personnel Policy, Planning and Management
(OPPPM) recruits people with language qualifications and/or
ability to fill a variety of different position requirements
throughout the Agency. Specific skills necessary to fill
the positions are detailed by component managers in recruit-
ment guides. Transcriber, translator, and language instructor
requirements are clearly identified in recruitment guides
which in many instances identify specific languages coupled
with S&T or NFAC related substantive knowledges. Although
these combined requirements make it more difficult to recruit
qualified personnel, we are having some measure of success
by concentrating on colleges and universities which have
produced qualified candidates in the past. A number of
other occupations such as the DDO Career Trainees, NFAC
Analysts, DDSF,T SIGINT Officers, and Authentication Specialists
include language requirements of a general nature in the
recruitment guide. Recruitment for these occupations is
difficult due to the lack of specific information about the
language requirement and the limited number of applicants
that meet both substantive and language qualifications.
In this category Agency managers are inclined to place
a greater priority on substantive qualification and hope
that the necessary language qualification can be acquired
through Agency or external training. Greater emphasis on
defining specific language requirements and proficiency
levels in the recruitment guides will assist in tailoring
OPPPM recruitment efforts and the Recruitment Division will
reissue such instructions to all offices engaged in establish-
ing recruitment guides.
Recommendations:
a. that greater emphasis be placed on making language
requirements.. more specific for non-language specialists such
as Career Trainees and analysts,
b. that Recruitment Division reissue such instructions
to all offices engaged in establishing recruitment guides,
c. that Recruitment Division be encouraged to recruit
language-qualified personnel for the CT Program regardless
of whether or not they meet formal educational standards
currently being applied.
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V. Space for the Language Program:
At Headquarters
The Language School presently uses approximately 3,197
sq. ft. of space at Headquarters for the language program.
Of this space, 2,322 sq. ft. have been donated by the DDO;
150 sq. ft. by NFAC; and 725 sq. ft. by the DDA. The 3,000
sq. ft. balcony of the South Cafeteria is being converted
into 9 classrooms for language use. This additional space--
in conjunction with the 2,472 sq. ft. of currently-used
space which will be retained--will meet our current space
needs and allow for a modest increase in Headquarters program
participation.
.At Chamber of Commerce Building
The anticipated addition in FY 82 of 2,025 sq. ft. of
space for language classrooms in the Chamber of Commerce
Building will be sufficient to meet projected requirements
including those resulting from the development complement
for language training in FY 83. More judicious scheduling
of language training by our customers will allow us to make
better utilization of space by forming larger classes.
Finally, a more careful screening of students for language
aptitude before being placed in language study will eliminate
the necessity of splitting classes in order to form compatible
groups.
Recommendations:
a. that conversion of the 3,000 sq. ft. space on the
balcony of the South Cafeteria proceed as planned. The
2,472 sq. ft. of the currently-used space be retained for
classroom use in the foreseeable future,
b. that the Language School be assigned 2,000 additional
sq. ft. language classrooms in the Chamber of Commerce
Building.
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VI. CIA's role in a long term broadly based program for
language improvement.
1. In November 1979 the President's Commission on
Foreign Language and International Studies issued the text
of its final report to the President entitled "Strength
Through Wisdom - A Critique of U.S. Capability." Pointing
to the fact that it had found "a serious deterioration in
this country's language and research capacity at a time ti-:hen
an increasingly hazardous international military, political
and economic environment is making unprecedented demands on
America's resources, intellectual capacity and public
sensitivity", the Commission called on the President to "set
an agenda for action in these areas of national need" and
made a number of recommendations to repair this deficiency
in both the private and public sector. Among these recommenda-
tions: "The U.S. Government should achieve 100% compliance
in filling positions designated as requiring foreign language
proficiency, review criteria for such designation in order
to strengthen the government's foreign language capability,
and evaluate the career systems of foreign affairs agencies
to ensure adequate career incentives for obtaining and
retaining foreign language and area expertise."
2. In October 1979 working parallel with and responsive
to the activities of the Presidential Commission, CIA
established the present Language Incentive Program (LIP) "to
encourage the development and maintenance of foreign language
skills to support Agency activities." The LIP appears to be
specifically responsive to the Commission charge as far as
an internal program for the Agency is concerned.
3. The President's Commission on Foreign Language and
International Studies also recommended that the language
profession establish national proficiency goals and procedures
for testing them. The Commission recommended the establish-
ment of a National Criteria and Assessment Program for
foreign language study, which would:
establish language proficiency achievement
goals for the-end of each year of study at all levels,
with special attention to speaking proficiency. The
National Criteria and Assessment Program would fill a
major gap in current language teaching by developing
tests based on actual proficiency, rather than by the
number of hours spent in the classroom, as is now the
case."
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With or without the creation of a formal National
Criteria and Assessment Program the benefits of implementing
this proposal would be manifold. As in most areas of human
endeavor, communication is the key to success. The existence
of national functional language proficiency standards and
evaluation procedures for assessing those standards would,
for the first time, provide a common language for communica-
tion both within the profession and between the profession
and its customers. Not only would it then be possible to
make meaningful judgments about curricular options, but also
about student achievement, student placement, and program
articulation.
4. The most pressing need for language proficiency
standards is in the area of oral language skills. Initial
efforts should concentrate on speaking standards. Fortunately,
there exists among agencies of the U.S. Government an accepted,
standardized system and its rating criteria for evaluating
spoken language skills in communicative settings. Commonly
referred to as the FSI oral interview, it has been used to
rate employees' functional language ability for over 25
years. In addition, the Educational Testing Service (ETS)
has been using the same system to test Peace Corps volunteers
and bilingual teachers. The Agency is one of the primary
sources of the government's expertise in this area, and it
would not be overstating the case to say that agency personnel,
working over the next several years with individuals from
academe and from other government agencies, will play a key
role in the development of an extremely valuable testing
tool that will affect foreign language instruction across
the country for decades to come. Cooperation to this end
has already begun among the national language related
professional organizations, i.e., Modern Language Association
(MLA), American Council on the Teaching of Foreign Languages
(ACTFL), and Teachers of English to Speakers of Other
Languages (TESOL), who in combination with the ETS look to
the U.S. Government Interagency Language Roundtable as a
source of testing and rating standards. Continuing work in
this burgeoning cooperative effort is already being done by
the Agency Language School in setting standards for measuring
functional foreign'language competence in federal agencies
and the Department of Defense. This work can be extended to
universities and secondary schools. This effort would
result in common testing of communicative skills, a concomitant
redirection of now inappropriate instructional techniques,
and establishment of levels of achievement stated in proficiency
levels rather than time units. It would address the professed
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national goal of teaching functional language skills not now
reflected in the curriculum, current instructional activities,
or present tests and reporting procedures of academic institu-
tions. We believe it offers the most practical, most
effective, and least costly means of contributing to a
national program for the improvement of foreign language
competence.
5. Specifically the Language School will accelerate
the production of a handbook on oral proficiency testing
techniques and rating standards which will incorporate
government-wide standards. The handbook will be followed by
English language materials to use as a common base for
initial training in other languages and ultimately training
materials in selected languages will be prepared. The total
effort will not only be useful for national use but directly
adaptable to Agency needs.
6. Any additional direct efforts by the Agency to
contribute to a national program can best be accomplished by
the full support and encouragement of developmental programs
and by publicizing the Agency's emphasis on language competence.
The DCI/DDCI and other appropriate Agency spokesmen should
speak out on the importance of language training to the
Agency along the following lines: a) A description of the
Agency's Language Incentive Program. It is not widely known
that the Agency places high value on the acquisition and
retention of language skill, and that employees are rewarded
monetarily for doing so. b) A statement of the importance
of language ability in the recruitment of career trainees.
c) An indication that the Agency spends a large amount of
money yearly in the-language training of employees. The
Agency would benefit considerably by having the incoming
language ability of individuals at a higher level so that
training can concentrate on improving competence rather than
on initial learning.
7. In addition, the professional staff of the Language
School should be encouraged to play an active role in
professional language associations in order to help make
more visible the Agency's commitment to quality language
instruction. The staff of the Language School should be
encouraged to make public presentations at high school,
college, and university career forums that emphasize the
kinds of language skills needed in government.
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8. Finally, within the restriction of available time
and assets, the Agency should support the linguistic and
pedagogical training and retraining of language instructors
in secondary and higher education schools. Congressman
Paul Simon is likely to reintroduce his Foreign Language
Assistance Act which includes a plan to create a national
network of centers for foreign language research and teacher
development. If this means of coordinating professional
training is implemented, CIA's expertise and experience
would be an important contribution.
a. that the Language School be authorized to expend
time and effort (approximately one and a half manyears) in
FY 82 to spearhead a program for development of national
test standards,
b. that the influence of the DCI/DDCI and other Agency
spokesmen be applied to publicize the Agency's interest in
and emphasis on foreign language competence,
c. that the DCI/DDCI support Congressional and
Executive branch efforts to further the development of
language-related resources,
d. that the staff of the Language School play an
active role in the propagation of foreign language awareness
0 C> by participation in professional conferences and appearances
at schools and universities.
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