GEMS includes information on Foreign  Service and Civil Service positions; in particular, it shows the total number  of authorized Foreign Service positions at State and whether each  position is currently filled or vacant. This vacancy percentage is similar to the percentages of  vacancies in overseas Foreign Service positions that we reported in 2012  and 2008. In 2012, we reported that 14 percent of State’s overseas  Foreign Service positions were vacant as of October 31, 2011, and we  reported that the same percentage of overseas Foreign Service  positions—14 percent—were vacant as of September 30, 2008. State’s data show persistent vacancies in Foreign Service specialist  positions that support and maintain the functioning of overseas posts. State’s Data Show Persistent Foreign Service Vacancies at Overseas Posts with State’s Highest Foreign Policy Priorities

According to State’s data, as of March 31, 2018, overseas posts with  State’s highest foreign policy priorities had the highest percentages of  vacant Foreign Service positions. State’s Data Show Higher Vacancy Rates in Regions with Security Risks That Could Threaten U.S. Foreign Policy Interests

While State has Foreign Service vacancies worldwide, as of March 31,  2018, the highest percentages of vacancies were in the South and  Central Asian Affairs Bureau (SCA) and Near Eastern Affairs Bureau  (NEA)—bureaus representing regions with heightened security risks that  could threaten U.S. foreign policy interests, according to State. Staff at multiple posts said that vacancies and the  resulting increased workloads had created substantial stress and  increased “burnout” of Foreign Service employees at the posts. According to staff at overseas posts, vacancies in political and economic  positions at overseas posts—particularly posts with fewer Foreign Service  employees—limit the amount of reporting on political and economic  developments that posts are able to submit back to State headquarters. Information Management

According to State officials in headquarters and staff at overseas posts,  as well as reporting by State’s OIG, vacancies in information  management positions at overseas posts have increased the vulnerability  of posts’ computer networks to potential cybersecurity attacks and other  malicious threats. State Described Various Efforts to Address Overseas Foreign Service Vacancies, but These Efforts Are Not Guided by an Integrated Action Plan to Reduce Persistent Vacancies State Officials Described Various Efforts to Help Address Vacancies

Officials in headquarters and at overseas posts described various State  efforts to help address overseas Foreign Service vacancies. Our 2017 High-Risk Series report calls for agencies to, among other  things, design and implement action plan strategies for closing skills  gaps. However,  according to State officials, this group has not developed an action plan to  reduce persistent Foreign Service vacancies at overseas posts. Without defining the root  causes of persistent Foreign Service vacancies at overseas posts and  identifying appropriate corrective measures, overseas vacancies may  persist and continue to adversely affect State’s ability to achieve U.S.  foreign policy goals. Conclusions

Foreign Service generalists and specialists at overseas posts are critical  to advancing U.S. foreign policy and economic interests abroad. While State has made some efforts to address Foreign Service  vacancies, addressing chronic vacancies in critical positions at overseas  posts requires a thoughtful, coherent, and integrated action plan that  defines the root causes of persistent Foreign Service vacancies at  overseas posts along with suggested corrective measures to reduce such  vacancies, following what was called for in our 2017 High-Risk Series  report. Developing such an action plan would help State address its  persistent staffing gaps, improve its ability to achieve U.S. foreign policy  goals, and help ensure secure and efficient operations. State also noted that it has taken actions and identified  some causes of vacancies, but acknowledged that it lacks an integrated  action plan and will take steps to develop such a plan. Appendix I: Objectives, Scope, and Methodology

This report examines (1) vacancies in the Department of State’s (State)  Foreign Service staffing at overseas posts, (2) reported effects of Foreign  Service vacancies on diplomatic readiness, and (3) State’s efforts to  address Foreign Service vacancies. We also interviewed staff at 10  overseas posts.
Why GAO Did This Study

State staffs Foreign Service employees to more than 270 embassies and consulates worldwide to advance U.S. foreign policy and economic interests. In 2009 and 2012, GAO identified ongoing Foreign Service staffing gaps.
GAO was asked to review State's Foreign Service staffing. This report examines (1) vacancies in State's Foreign Service staffing at overseas posts, (2) reported effects of Foreign Service vacancies on diplomatic readiness, and (3) State's efforts to address Foreign Service vacancies. To address these objectives, GAO analyzed State's Global Employment Management System data as of March 2018. The system includes information on Foreign Service and Civil Service positions, including the total number of authorized Foreign Service positions and whether each position is filled or vacant. GAO also reviewed its relevant prior reports and State workforce planning documents. In addition, GAO interviewed State staff at 10 overseas posts, selected on the basis of large numbers of Foreign Service vacancies and diversity in the types of Foreign Service positions that were vacant at these posts, among other factors.

What GAO Found

The Department of State's (State) data show persistent Foreign Service vacancies at overseas posts since 2008. According to the data, 13 percent of overseas Foreign Service positions were vacant as of March 2018. This percentage is similar to the percentages GAO reported for 2008 and 2012, when 14 percent of these positions were vacant. In addition, State's data show persistent vacancies at overseas posts in generalist positions that help formulate and implement U.S. foreign policy and in specialist positions that support and maintain the functioning of overseas posts. State's data also show persistent Foreign Service vacancies at overseas posts with State's highest foreign policy priorities and in regions with security risks that could threaten U.S. foreign policy interests.
According to staff at overseas posts, Foreign Service vacancies adversely affect State's ability to carry out U.S. foreign policy. Staff at overseas posts told us that vacancies increase workloads, contributing to low morale and higher stress for Foreign Service staff and that vacancies in Political and Economic positions—20 percent and 16 percent, respectively—limit the reporting on political and economic issues that posts are able to provide to State headquarters. Notably, officials also stated that vacancies in specialist positions may heighten security risks at overseas posts and disrupt post operations. For instance, some overseas post staff said that vacancies in Information Management positions had increased the vulnerability of posts' computer networks to potential cybersecurity attacks and other malicious threats.
State described various efforts—implemented by multiple offices in the department —to help address overseas Foreign Service vacancies, but these efforts are not guided by an integrated action plan to reduce persistent vacancies. An example of State's efforts is the “Hard-to-Fill” program, which allows Civil Service staff an opportunity to fill a Foreign Service vacancy on a single overseas tour. According to GAO's 2017 High-Risk Series report, an agency should design and implement an action plan—integrated across its relevant offices—that defines the root causes of all skills gaps and suggests corrective measures. However, State has not developed such an action plan for reducing persistent overseas Foreign Service vacancies. Without developing an integrated action plan, overseas Foreign Service vacancies may persist. As a result, State's ability to achieve U.S. foreign policy goals and help ensure secure and efficient operations could be adversely impacted.

What GAO Recommends

GAO recommends that State develop an integrated action plan that defines the root causes of persistent Foreign Service vacancies at overseas posts and suggests corrective measures to reduce such vacancies. State concurred with our recommendation and noted that it will take steps to develop an integrated action plan.