Reported  incidence rates for most types of assaults have increased since Peace  Corps began collecting data in 1990, but have stabilized in recent years. Peace Corps’ system for gathering and analyzing data on crime against  volunteers has produced useful insights, but we reported in 2002 that steps  could be taken to enhance the system. The full extent of crime against volunteers, however, is  unknown because of significant underreporting. In 2002, we observed that opportunities for additional analyses existed  that could help Peace Corps develop better-informed intervention and  prevention strategies. The agency has hired an  analyst responsible for maintaining the agency’s crime data collection  system, analyzing the information collected, and publishing the results for  the purpose of influencing volunteer safety and security policies. However, these  new systems have not yet been put into operation. We previously reported that  volunteers were generally satisfied with the agency’s training programs. However, recent Inspector General reports  continued to find significant shortcomings at some posts, including  difficulties in developing safe and secure sites and preparing adequate  emergency action plans. In 2002, we reported that, while all posts had tested their emergency  action plan, many of the plans had shortcomings, and tests of the plans  varied in quality and comprehensiveness. Also, our analysis showed improvement in the  quality of information forwarded to headquarters. Underlying Factors Contributed to Uneven Field Implementation, but Agency Has Taken Steps to Improve Performance

In our 2002 report, we identified a number of factors that hampered Peace  Corps efforts to ensure that this framework produced high-quality  performance for the agency as a whole. These included high staff turnover,  uneven application of supervision and oversight mechanisms, and unclear  guidance. The agency has made some progress but has not completed  implementation of these initiatives. The Peace Corps Director has employed his authority under this law  to designate 23 positions as exempt from the 5-year rule. In addition, Peace Corps has    appointed six additional field-based safety and security officers, bringing  the number of such individuals on duty to nine (with three more positions  to be added by the end of 2004);    authorized each post to appoint a safety and security coordinator to  provide a point of contact for the field-based safety and security officers  and to assist country directors in ensuring their post’s compliance with  agency policies, including policies pertaining to monitoring volunteers and  responding to their safety and security concerns (all but one post have  filled this position);   appointed safety and security desk officers in each of Peace Corps’ three  regional directorates in Washington, D.C., to monitor post compliance in  conjunction with each region’s country desk officers; and   appointed a compliance officer, reporting to the Peace Corps Director, to  independently examine post practices and to follow up on Inspector  General recommendations on safety and security. To clarify agency guidance, Peace Corps has    created a “compliance tool” or checklist that provides a fairly detailed and  explicit framework for headquarters staff to employ in monitoring post  efforts to put Peace Corps’ safety and security guidance into practice in  their countries,   strengthened guidance on volunteer site selection and development,    developed standard operating procedures for post emergency action plans,    concluded a protocol clarifying that the Inspector General’s staff has  responsibility for coordinating the agency’s response to crimes against  volunteers.
Why GAO Did This Study

About 7,500 Peace Corps volunteers currently serve in 70 countries. The administration intends to increase this number to about 14,000. Volunteers often live in areas with limited access to reliable communications, police, or medical services. As Americans, they may be viewed as relatively wealthy and, hence, good targets for crime. In this testimony, GAO summarizes findings from its 2002 report Peace Corps: Initiatives for Addressing Safety and Security Challenges Hold Promise, but Progress Should be Assessed, GAO- 02-818, on (1) trends in crime against volunteers and Peace Corps' system for generating information, (2) the agency's field implementation of its safety and security framework, and (3) the underlying factors contributing to the quality of these practices.

What GAO Found

The full extent of crime against Peace Corps volunteers is unclear due to significant under-reporting. However, Peace Corps' reported rates for most types of assaults have increased since the agency began collecting data in 1990. The agency's data analysis has produced useful insights, but additional analyses could help improve anti-crime strategies. Peace Corps has hired an analyst to enhance data collection and analysis to help the agency develop better-informed intervention and prevention strategies. In 2002, we reported that Peace Corps had developed safety and security policies but that efforts to implement these policies in the field had produced varying results. Some posts complied, but others fell short. Volunteers were generally satisfied with training. However, some housing did not meet standards and, while all posts had prepared and tested emergency action plans, many plans had shortcomings. Evidence suggests that agency initiatives have not yet eliminated this unevenness. The inspector general continues to find shortcomings at some posts. However, recent emergency action plan tests show an improved ability to contact volunteers in a timely manner. In 2002, we found that uneven supervision and oversight, staff turnover, and unclear guidance hindered efforts to ensure quality practices. The agency has taken action to address these problems. To strengthen supervision and oversight, it established an office of safety and security, supported by three senior staff at headquarters, nine field-based safety and security officers, and a compliance officer. In response to our recommendations, Peace Corps was granted authority to exempt 23 safety and security positions from the "5- year rule"--a statutory restriction on tenure. It also adopted a framework for monitoring post compliance and quantifiable performance indicators. However, the agency is still clarifying guidance, revising indicators, and establishing a performance baseline.