In 2009, State began another hiring effort called  Diplomacy 3.0 to increase its Foreign Service workforce by 25 percent by  2013. Even with Increased Hiring, State Faces Persistent Midlevel Experience Gaps Overseas

State increased the size of the Foreign Service by about 17 percent in  fiscal years 2009 and 2010, but overseas experience gaps—the  percentage of positions that are vacant or filled with upstretch  assignments—have not declined since 2008 because State increased the  total number of overseas positions in response to increased needs and  emerging diplomatic priorities. According to State officials, the department takes  special measures to fill high-priority positions. Both percentages, as well as the total percentage  of positions facing experience gaps, are unchanged since 2008. Additionally, State officials noted that  most Foreign Service employees hired in fiscal year 2010 would not have  been placed in overseas assignments as of October 31, 2011, when we  acquired staffing data. State Has Taken Steps to Address Midlevel Experience Gaps Overseas but Has Not Included These Steps in Its Workforce Plan

State has taken steps to implement goals highlighted in the QDDR to  increase its reliance on Civil Service employees and retirees, and expand  mentoring to help address midlevel experience gaps overseas. State also hires retirees on a limited basis to  help fill gaps overseas. In addition, State began a pilot program offering a  workshop with mentoring for first-time supervisors overseas. The Human Resources Bureau began a pilot program in November 2011  to expand opportunities for Civil Service employees to serve in overseas  positions. Most of these assignments are for midlevel  positions. The department  has limited authority to hire retirees for full-time positions and also for  temporary assignments. State’s efforts to draw on its pool of retirees and Civil Service  employees to fill midlevel gaps are examples of the use of such  flexibilities; however, it is not clear that State has developed a strategy to  take full advantage of its authority to use them. Conclusions

State faces persistent Foreign Service experience gaps at overseas  posts, particularly at the midlevels, and these gaps put its diplomatic  readiness at risk. Recommendation for Executive Action

To help guide State’s efforts to address midlevel gaps in the Foreign  Service, we recommend that the Secretary of State direct the Bureau of  Human Resources to update its Five Year Workforce Plan to include a  strategy to address these gaps and a plan to evaluate the success of this  strategy. Appendix I: Objectives, Scope, and Methodology

In this report, we assess: (1) the extent to which the Department of  State’s (State) overseas midlevel Foreign Service experience gaps have  changed since 2008 and (2) State’s efforts to address these gaps. To assess State’s approach to addressing midlevel Foreign Service gaps  through expanded use of Civil Service employees, retirees, and  mentoring, we  reviewed GAO and State Office of Inspector General  reports;  reviewed relevant State documents, such as State’s Quadrennial  Diplomacy and Development Review (QDDR), State’s Five Year  Workforce Plan, and the Bureau of Human Resources’ Bureau  Strategic and Resource Plan;  reviewed federal laws, policies, and regulations governing Limited  Non-Career Appointments (LNA) of Civil Service Employees,  conversion from Civil Service to Foreign Service, and hiring of retired  Foreign Service and Civil Service annuitants; and  interviewed officials in State’s Bureau of Human Resources, Bureau  of Consular Affairs, and six regional bureaus, the American Foreign  Service Association, and the American Academy of Diplomacy  regarding overseas experience gaps and the potential to address  gaps through the use of Civil Service, retirees, and mentoring.
Why GAO Did This Study

In 2009, GAO reported on challenges that State faced in filling its increasing overseas staffing needs with sufficiently experienced personnel and noted that persistent Foreign Service staffing and experience gaps put diplomatic readiness at risk. State is currently undertaking a new hiring plan, known as Diplomacy 3.0, to increase the size of the Foreign Service by 25 percent to close staffing gaps and respond to new diplomatic priorities. However, fiscal constraints are likely to delay the plans full implementation well beyond its intended target for completion in 2013. In addition, States first Quadrennial Diplomacy and Development Review highlighted the need to find ways to close overseas gaps. GAO was asked to assess (1) the extent to which States overseas midlevel experience gaps in the Foreign Service have changed since 2008 and (2) States efforts to address these gaps. GAO analyzed States personnel data; reviewed key planning documents, including the Five Year Workforce Plan; and interviewed State officials in Washington, D.C., and at selected posts.

What GAO Found

The Department of State (State) faces persistent experience gaps in overseas Foreign Service positions, particularly at the midlevels, and these gaps have not diminished since 2008. In fiscal years 2009 and 2010, State increased the size of the Foreign Service by 17 percent. However, these new hires will not have the experience to reach midlevels until fiscal years 2014 and 2015. GAO found that 28 percent of overseas Foreign Service positions were either vacant or filled by upstretch candidatesofficers serving in positions above their gradeas of October 2011, a percentage that has not changed since 2008. Midlevel positions represent the largest share of these gaps. According to State officials, the gaps have not diminished because State increased the total number of overseas positions in response to increased needs and emerging priorities. State officials noted the department takes special measures to fill high-priority positions, including those in Afghanistan, Iraq, and Pakistan.
State has taken steps to increase its reliance on Civil Service employees and retirees, as well as expand mentoring, to help address midlevel experience gaps overseas; however, State lacks a strategy to guide these efforts. State is currently implementing a pilot program to expand overseas assignments for Civil Service employees. Efforts to expand the limited number of these assignments must overcome some key challenges, such as addressing new gaps when Civil Service employees leave their headquarters positions and identifying qualified Civil Service applicants to fill overseas vacancies. State also hires retirees on a limited basis for both full-time and short-term positions. For example, State used limited congressional authority to offer dual compensation waivers to hire 57 retirees in 2011. As a step toward mitigating experience gaps overseas, State began a pilot program offering workshops that include mentoring for first-time supervisors. State acknowledges the need to close midlevel Foreign Service gaps, but it has not developed a strategy to help ensure that the department is taking full advantage of available human capital flexibilities and evaluating the success of its efforts to address these gaps.

What GAO Recommends

GAO recommends that State update its Five Year Workforce Plan to include a strategy to address midlevel Foreign Service gaps and a plan to evaluate the success of this strategy. State reviewed a draft of this report and agreed with GAOs recommendation.