USMC_LREC_Strategy_2016-20_CMC_DRAFT.pdf

DRAFT

ii

TABLE OF CONTENTS 2

EXECUTIVE SUMMARY……………………………………………………

CHAPTER 1: INTRODUCTION……………………………………………………... 4

1.1 Background and Guidance………………………………………………… 4

1.2 CJCSI 3126.01A LREC Competencies and Proficiencies………………… 7

CHAPTER 2: ENABLING THE MAGTF WITH LREC CAPABILITY…………….. 8

2.1 Preparing the Force……… …………………………………

2.2 Developing Proficiency……………………………………………………. 10

2.3 Developing Professionals …………………………………………………. 12

2.4 Managing LREC Capability……………………………….………………. 13

CHAPTER 3: LREC ADVOCACY…..……………………………………………….. 16

3.1 The LREC Advocate, Proponent, and Community of Interest……………. 16

3.2 LREC Operational Advisory Group………………………………………. 17

CHAPTER 4: LREC PRIORITIES AND OBJECTIVES……..…………………….. 18

4.1 Priorities…………………………………….…………………………….. 18

4.1 Tasks…………………………………….………………………………… 18

CHAPTER 5 SUMMARY………………………………….……..………………….. 20

APPENDICES

Appendix A: Abbreviations…………………………………..……………………….. 21

Appendix B: Definitions………………………………………………………………. 24

Appendix C: References……...……………………………………………………

Appendix D: LREC Community of Interest…………………………………………... 28

Appendix E: LREC Capability Identification, Planning, and Sourcing……………….. 30 iii

FOREWORD FROM THE COMMANDANT OF THE MARINE CORPS 15

Since its inception, the Marine Corps has served as the 17 nation’s expeditionary force, forging first into complex 18 operating environments and laying the groundwork for success. 19

This proud history has taught us that Language, Regional 20

Expertise, and Culture (LREC) capabilities are essential to 21 success in such environments. We have also learned that 22 adequate LREC capabilities cannot be delivered “just in time” 23 and in sufficient quantity to ensure mission success. Our 24

Marines must be trained, educated, and postured to support the 25 range of military operations well ahead of any potential crisis or 26 contingency. As reinforced in my Commandant’s Planning 27

Guidance, the Marine Corps must be ready and able to deploy 28 anywhere in the world at a moment’s notice. Building Partner 29

Capacity is a key capability of our forward-deployed units, and 30 requires a force adept at interacting with and influencing foreign populations, partner and 31 coalition militaries, and adversaries from across the globe. To achieve this end, our Marines must 32 continue building and improving our LREC capabilities across the Service. Marines will 33 continue to learn how cultures impact planning and decision-making processes and be mindful of 34 the strategic influence of cultural factors on all levels of operations. 35

Our efforts to date have provided depth through our corps of language professionals, 37 breadth through foundational LREC knowledge across the force, and growing expertise through 38 our foreign area professionals. Since the publication of the previous LREC Strategy, the Corps 39 has led the way among the Services in institutionalizing a robust and sustainable LREC 40 capability that meets the operational needs of the combatant commanders. We established the 41

Regional, Culture, and Language Familiarization Program and the Foreign Area Staff Non-42

Commissioned Officer Program. To maintain improved Security Sector Assistance, we created 43 the Foreign Security Force Advisor military occupational specialty and now can more easily 44 identify and employ Marines with these capabilities. Additionally, we have implemented an 45 individual capability tracking system. Command Profile, supported by the Marine Corps Total 46

Force System, is accessible by all commands and greatly enhances a commander’s ability to 47 identify, track, and subsequently employ Marines with these LREC skills. 48

We must now continue to build on our previous achievements across the whole of our 50

LREC capabilities. It is imperative that we enhance our education and training of Marines of all 51 ranks to ensure continued success in distributed operations and increasingly complex 52 environments. Further development and maintenance of a multi-layered LREC capability across 53 the force requires effort along several fronts. Our doctrine must provide a sound foundation for 54 the application of culture and language in planning and operations. Our Service-level 55 organizations with the responsibilities for developing and delivering LREC capabilities must be 56 staffed and resourced to perform those missions. Our training and readiness manuals and 57 professional military education must incorporate relevant training events and learning outcomes 58 to ensure individual Marines develop the cross-cultural competence required to operate 59 iv effectively while immersed in foreign cultures and languages. Finally, we need to ensure that the 60 advocacy and proponent process, under the leadership of the Deputy Commandant for Combat 61

Development and Integration – and with input from the operating forces – identifies LREC 62 requirements and links them to relevant Mission Essential Tasks, the future force development, 63 unit readiness, and force sourcing solutions. 64

Take this specific guidance to ensure that the Marine Corps generates forward-deployed 66 forces that know the ground, the people, and our adversaries. 67

Semper Fidelis, 69

Robert B. Neller 71

General, U.S. Marine Corps 72

Executive Summary 75

Language, regional expertise, and culture (LREC) capabilities are enduring warfighter 77 competencies critical to global mission readiness and integral to Marine Corps and Joint complex 78 expeditionary operations.

In support of this goal and in fulfillment of Service tasks in the 79

Department of Defense (DoD) Strategic Plan for Language Skills, Regional Expertise, and 80

Cultural Capabilities, the Marine Corps LREC Strategy: 2016-2020 outlines the ends, ways, and 81 means for developing and employing a multi-layered LREC capability across the Corps. 82 Since publication of the last LREC Strategy in 2011, the Marine Corps has made significant 84 enhancements to its LREC capabilities, from our intelligence and foreign area professionals to 85 the individual Marine in the operating forces and our critical skills operators within the Special 86

Operations Forces.

Each Marine Air-Ground Task Force (MAGTF) is enabled with LREC 87 capabilities. All Marines are now provided with progressive LREC training and education 88 throughout their respective careers. Many military occupational specialties (MOSs), such as 89 those for Advising, Information Operations, and Civil Affairs, identify LREC capabilities as 90 required to accomplish their primary tasks. Other MOSs, such as Foreign Area Officer (FAO), 91

Foreign Area Staff Non-Commissioned Officer (FAS), and crypto-linguists, have in-depth LREC 92 capabilities as their primary tasks. Finally, MAGTFs conduct Mission Essential Task List 93

(METL)-driven LREC training with the assistance of enabling organizations, such as the Center 94 for Advanced Operational Culture Learning (CAOCL), in support of essential missions such as 95 building partnership capacity, counter-insurgency, and stability operations. 96

In 2013, the Chairman of the Joint Chiefs of Staff issued Instruction 3126.01A, Language, 98

Regional Expertise, and Culture (LREC) Capability Identification, Planning, and Sourcing. As 99 part of the deliberate planning and force generation processes, this instruction directs the 100

Services to provide LREC capabilities to the Geographic Combatant Commands (GCCs) in 101 accordance with a LREC capability categorization framework that includes Basic, Full 102

Proficiency, and Master levels. In this document the Marine Corps aligns its LREC capability 103 framework to the CJCSI 3126.01A in order to better meet the GCCs’ requirements for all 104 operational planning phases, and across the range of military operations (ROMO). 105

The Basic proficiency level provides Marines with a foundational level of LREC knowledge and 107 skills early in their careers. Marines at the Basic level can demonstrate a fundamental awareness 108 of relevant concepts and processes and can apply them in many practical operational situations. 109

Marines receive initial exposure to LREC concepts during Recruit Training and the Corporals 110

Course. CAOCL provides Basic LREC training to new officers at The Basic School (TBS) and 111 units conducting METL-driven training. 112

Marines in specialized MOSs, such as planners for Civil Affairs or Information Operations, or 114

Foreign Security Force Advisors, require LREC knowledge and skills at the Full Proficiency 115 level. These Marines are trained by and provide support to the MAGTF through organizations 116 such as the Marine Corps Security Cooperation Group (MCSCG), the Marine Corps Civil 117

The Marine Corps Service Campaign Plan 2012-2020 (April 2012), p. 1. The MCSCP states that Marine must be able to “Conduct complex expeditionary operations in the urban littorals and other challenging environments.”

The Marine Corps Language, Regional and Culture Strategy: 2011-2015 (January 2011).

Military Operations School (MCCMOS), the Marine Corps Information Operations Center 118

(MCIOC), and the Marine Corps Intelligence Activity (MCIA). The Marine Corps’ main effort 119 to provide all Marine leaders – officers, as well as sergeants and above – with LREC training and 120 education at the Fully Proficient level is the Regional, Culture, and Language Familiarization 121

(RCLF) Program. CAOCL develops the requisite curricula and delivers the RCLF Program to 122 ensure Marines are globally prepared and regionally focused so that they are effective at 123 navigating and influencing the culturally complex 21st century operating environment in support 124 of Marine Corps missions and requirements. Through the RCLF Program, Marines are assigned 125 one of 17 regions for long term study upon promotion to Sergeant or during attendance at TBS. 126

The RCLF curriculum, as a requirement to be “PME complete” for grade, is now integral to the 127

Marine Corps Primary Military Education pathway, and will contribute to a Marine’s future 128 competitiveness.

The RCLF Program is the first Service-wide initiative that provides 129 comprehensive LREC career education in DoD. 130

Finally, the International Affairs Program (IAP) within the Plans, Policies, and Operations 132

(PP&O) Department and the Director of Intelligence (DIRINT) provides Marines with LREC 133 capability at the Master Level as described by CJCSI 3126.01A. These Marines include FAOs, 134

Regional Affairs Officers (RAOs), FASs, and crypto-linguists. These capabilities provide the 135 individuals extensive depth and breadth of expertise in advanced LREC concepts and processes, 136 as well as the ability to apply them in highly complex and ambiguous situations. In sum, the 137

Marine Corps employs these programs, processes, and capabilities to ensure the MAGTF is 138 positioned for success in any contingency in any part of the world. The collective capability 139 engendered by this strategy is greater than the sum of the parts. 140

In order to ensure the continued development of LREC capabilities to meet operational needs, it 142 is imperative that the Corps have a strong advocacy process for LREC capabilities. The Deputy 143

Commandant for Combat Development and Integration (DC, CD&I) is assigned as the LREC 144

Advocate to coordinate with the operating forces and supporting establishment to ensure unified 145 action on LREC capability development as part of the Marine Corps Capabilities Based 146

Assessment (MC CBA). DIRINT and the Director, Strategy and Plans Division (Dir, PL/PP&O), 147 designated as the Senior Language Authority (SLA) and Deputy SLA respectively, take a broad 148 perspective on Marine Corps policies beyond intelligence-related language issues in the 149 development of DoD and Service LREC policies and capabilities. The Director of the Small 150

Wars Center and Irregular Warfare Integration Division (SWCIWID), as the portfolio manager, 151 plays a key role in identifying, coordinating, and integrating LREC capabilities in support of 152

Joint Capability Area 8 (Building Partnerships). The Commanding General, Education 153

Command (CG, EDCOM), assigned as the Proponent for establishing and maintaining multiple 154

LREC capabilities in support of the General Purpose Force (GPF), employs the Center for 155

Advanced Operational Culture Learning (CAOCL) to assist the Advocate through execution of 156 mutually supporting training and education programs, as well as institutionalization of LREC 157 capabilities across the pillars of Doctrine, Organization, Training, Materiel, Leadership, 158

Personnel and Facilities (DOTMLPF). DC, PP&O and DIRINT perform like functions for the 159

International Affairs and Intelligence programs for which they execute respective proponency. 160

Additionally, these Proponents shall provide recommendations on relevant core and core plus 161

MROC Decision Memorandum 38-2012: Regional, Culture, and Language Familiarization (RCLF) Program, p.1, 24 May 2012.

Mission Essential Tasks (METs), associated conditions, and standards for use throughout the 162

Service. These organizations, along with other LREC stakeholders, compose the LREC 163

Community of Interest (COI) that informs the Advocate of operational requirements and 164 deficiencies across the DOTMLPF pillars. 165

The Marine Corps has made significant progress toward institutionalizing a multi-layered LREC 167 capability, but still has work to do across the DOTMLPF spectrum. This strategy charts a path 168 ahead to a robust and sustained LREC capability and provides specific tasks in support of this 169 effort. 170

Chapter 1: Introduction 172

Marines are specifically trained and broadly educated to understand and achieve 174 operational objectives among diverse cultures and populations, to thrive in chaotic 175 environments, and to recognize and respond creatively to demanding situations. 176

MCDP 1-0 Marine Corps Operations, p. 2-20. 177

LREC capabilities are essential across the ROMO and are especially important in activities that 179 require sustained interaction with foreign security forces and populations. Joint doctrine explains 180 that a fundamental requirement for military success is a sound understanding of the operational 181 environment, which “requires a careful study of the geography, population, and culture.”

Marine 182

Corps doctrine and planning processes also recognize this reality and now include formal 183 methods, such as problem framing and the use of “green cells” to this end. LREC capabilities are 184 also essential to the success of Marine Forces conducting security cooperation and forward naval 185 engagement in support of GCC Theater Campaign Plans (TCPs) and Security Cooperation 186

Engagement Plans (SCEPs). 187

The Marine Corps Language, Regional and Culture Strategy 2011-2015 centralized existing 189 directives and established additional Marine Corps guidance for the development of LREC 190 programs, which produced significant enhancements to the Marine Corps’ LREC capabilities. 191

This follow-on document seeks to capitalize on that success and updates the strategy to align 192 with the Chairman of the Joint Chiefs of Staff Instruction 3126.01A: Language, Regional 193

Expertise, and Culture (LREC) Capability Identification, Planning and Sourcing, the Marine 194

Corps Service Campaign Plan 2014-2022, and the 36th Commandant’s Planning Guidance: 195

2015.

The strategy formalizes stakeholder roles and responsibilities and highlights LREC issues 196 and initiatives across the Marine Corps. The end-state is the development and employment of a 197 multi-layered LREC capability. This strategy will focus on the ways and means required to 198 accomplish this goal, including an advocacy approach that will further strengthen and 199 institutionalize the Corps’ LREC capabilities. Additionally, this document details the Marine 200

Corps’ plan to realize the Joint framework described in CJSCI 3126.01A to increase 201 synchronicity with GCC planning and resourcing. 202

This chapter provides an overview of relevant higher guidance. The second chapter describes 204 both how the MAGTF is enabled by Marines and organizations that provide LREC capabilities 205 and the unique LREC management challenges facing the MAGTF. The third chapter lays out the 206

Marine Corps’ approach to LREC advocacy and how this process will increase the 207 communication and representation of operating force requirements. Advocacy broadens 208 participation within Headquarters, Marine Corps (HQMC) processes and provides substantive 209 inputs to the MC CBA. The fourth chapter identifies specific tasks in support of this strategy. 210

1.1 Background and Strategic Guidance 212

Strategic guidance and independent assessments agree that the future security environment will 214 continue to provide challenging operating environments that demand forces adept at employing 215

Joint Publication 3.0, Joint Operations (August 11, 2011), p. V-18.

For more information about CJCSI 3126.01A see Appendix E.

LREC capabilities to affect mission success. The majority of our future operating environments 216 will be in the complex urban environments of the littorals and will be conducted with Joint, 217 coalition, or partner military forces. Urban environments present the additional unique challenge 218 of dense populations of non-combatants, whose culture, values, and infrastructure, per Joint 219 doctrine, should be considered during the planning process.

The U.S. National Security Strategy 220 emphasizes the need to leverage the capability of allies and the value of security partnerships in 221 advancing U.S. interests.

LREC capabilities 222 continue to remain critical to the concepts and 223 goals outlined in our own Service guidance, such 224 as the Commandant’s Planning Guidance: 2015 225 and Expeditionary Force-21 (EF-21). 226

Consequently, Marines must understand that 227 future mission accomplishment will in part 228 depend on their ability to understand and employ 229

LREC capabilities during planning and execution 230 of all phases of operations and at all levels of 231 war. The Marine Corps has a rich history of 232 adapting to LREC operational requirements as 233 demonstrated by the enclosed historical 234 vignettes. However, lessons learned during recent 235 expeditionary operations across the globe – 236 especially during Operations ENDURING 237

FREEDOM (OEF) and IRAQI FREEDOM (OIF) 238

– have taught us that LREC capabilities are still 239 not sufficiently institutionalized into the 240

DOTMLPF pillars. Too often, LREC capabilities 241 are surged “just in time” and neglects Phase 0 242 planning considerations and those crises or 243 contingencies that have a greater likelihood of 244 occurrence than major theater war. Continued 245 efforts to institutionalize LREC will significantly 246 reduce unnecessary periods of adjustment during 247 the complex operations of tomorrow’s 248 battlefields. 249

There are several notable documents that outline 251 the LREC requirements levied on the Services 252 and others that emphasize the relevance of LREC 253 capabilities to Marine Corps missions. The 254

Quadrennial Defense Review (QDR) 2014 uses 255 the term “region” forty times and emphasizes the 256 need to rely on regional partners and allies that in 257 turn mandate the need to understand and 258 communicate with these partners. Further, it 259

Ibid, p. V-42.

U.S. National Security Strategy, p 7.

Presley O’Bannon and the

Assault on Derna

The importance of LREC capabilities is highlighted by events that transpired during the first Marine Corps expedition, culminating in the Battle of

Derna on April 27, 1805. First Lieutenant

Presley O’Bannon and the former

American Consul to Tunis, William Eaton, successfully led eight Marines and a multicultural force of five hundred Greek, Arab, and Berber mercenaries.

O’Bannon marched with his battalion for nearly two months dealing with the continual threat of mutiny, fighting within his ranks by the different ethnic groups, an inhospitable environment, and a lack of supplies that resulted in the slaughtering of at least one of their camels.

O’Bannon used knowledge and abilities that we now label LREC capabilities in order to achieve his mission objectives. He intuitively understood the differences between cultures and used that to unite a divided coalition into a common purpose. He also relied on his communication skills to keep his force focused on attacking the enemy and not each other.

Despite religious and ethnic differences, he was able to lead his unit against a fortified city and an estimated

4,000 enemy combatants. The eventual victory led to the Marine Corps traditions of the use of the Mameluke sabre and the famous line from the Marine Hymn “to the shores of Tripoli.”

outlines independent regional strategies for each GCC emphasizing that in order to be successful 260 mission planning must include the consideration of distinct foreign populations. 261

The DoD Instruction 5160.41E Defense Language Program and DoD Instruction 5160.70 263

Management of DoD Language and Regional Proficiency Capabilities provide more specific 264 guidance to fulfill the QDR 2014 vision. 265

DoDI 5160.41E requires that foreign language and regional expertise be considered as critical 267 competencies essential to the DoD mission and shall be managed to maximize the accession, 268 development, maintenance, enhancement, and employment of these critical skills appropriate to 269 the DoD’s mission needs. 270 DoDI 5160.70 establishes language proficiency capability requirements, reinforces the guidance 272 that foreign language and regional proficiency are mission critical skills, and publishes regional 273 proficiency skill level guidelines. 274

The DoD Directive 5160.41E Defense Language, Regional Expertise, and Culture Program 276

(DLRECP) signals the shift from a language-centric DoD approach to an all-encompassing DoD 277

LREC program. This DoDD mandates that Military and DoD civilian personnel deploying to 278 foreign territories must possess or have access to an appropriate capability to communicate in the 279 languages of the territories of deployment and at least have a rudimentary understanding of the 280 region and associated culture(s). It directs the military Secretaries to ensure that all foreign 281

LREC education and training of personnel is tracked and documented in Service personnel and 282 training systems and made available to the Defense Readiness Reporting System. 283

Rio Coco Campaign

1928-1933

Captain Merritt A. Edson (later Major General) and one-hundred and fifty Marines began operations against a Nicaraguan opposition leader, Augusto Sandino, in 1928. Edson applied what historian David Brooks refers to as “militarized anthropology” to achieve mission goals. These abilities relied heavily on the skills and attributes that are foundational principles of today’s LREC competencies.

Marine leadership realized they needed to befriend the local population of Miskito and ordered Edson’s company to respond to their criticism with dialog and patience that would eventually benefit efforts to fight Sandino.

Through cultural understanding, Edson was able to capitalize on the Miskitos’ dislike of

Hispanic Nicaraguans. Edson learned that they were inculcated from birth with a hatred of

‘Spaniards’ – their term for Spanish speaking Nicaraguans. Edson leveraged his knowledge of the local culture to enable the recruitment of the indigenous Miskito as allies.

The Marines encountered another ethnic group, the Sumu, as they travelled further into the interior and closer to Sandino. Edson employed similar strategies to win the Sumus’ help to navigate the interior region of the Nicaraguan jungle.

At the Marine Corps level, EF-21 emphasizes the need to avoid adverse cultural and political 285 impacts when working with our regional partners to achieve success.

To meet future challenges, 286 it calls for the regional orientation, resourcing, and employment of Marines. The Special Purpose 287

MAGTFs are discussed as regional enablers that “…promote interoperability, promote access, 288 build defense and security relationships, [and gain] regional understanding and position for 289 immediate response to episodic crisis.”

Likewise, Intelligence is described as an “indispensable 290

Marine Corps Warfighting Function.”

LREC capabilities are a direct enabler of these goals and 291 capabilities because properly trained and equipped Marines with LREC skills and concepts 292 provide the requisite knowledge and skills to successfully work with foreign partners and interact 293 with and influence local populations. All of these requirements depend on robust LREC 294 programs to instill the knowledge and hone the skills necessary to inform planning and fight 295 with, among, or against unfamiliar populations. 296

1.2 CJCSI 3126.01A LREC Competencies and Proficiencies 298

In order to simplify Service incorporation of LREC requirements into existing manpower, 300 readiness, and force sourcing processes, CJSCI 3126.01A distills DoD LREC guidelines into 301 competencies and proficiencies.

This categorization allows the Services to identify, plan, and 302 source LREC capabilities to meet GCC operational requirements as part of the deliberate 303 planning process. The following chart details the level of proficiency required across the 304 competencies and is discussed in significantly greater detail in Chapter 2. Language capability is 305 addressed separately through the existing Interagency Language Roundtable (ILR) and is 306 assessed using the ILR scoring range of 0-5. 307

CJCSI 3126.01A LREC Competencies

L R

E C

P ro fi ci en ci es

Region Culture* Leadership/

Influence

Basic - Employs a foundational awareness of concepts and processes across a range of situations.

Fully

Proficient

- Employs a thorough understanding of core concepts and processes in routine and increasingly complex situations.

Master - Employs extensive depth and breadth of knowledge in advanced concepts and processes in routine, highly complex, and ambiguous situations.

- Individuals operating at this level of proficiency serve as an acknowledged authority, advisor, and key resource across the agency, command, or organization.

Expeditionary Force 21, (Washington D.C.: March 2014), p. 6.

Ibid, p. 6.

Ibid, p. 37.

For the purpose of this document, references to culture in Table 1 include both culture-specific and culture-general information.

Table 1: LREC Competencies and Proficiencies

Chapter 2: Enabling the MAGTF with LREC Capability 311

This chapter describes the ways in which every MAGTF is enabled with LREC capabilities at 313 the Basic, Fully Proficient, and Master proficiency levels and how each level contributes to the 314 warfighting effectiveness of the MAGTF.

With the anticipated reduction in contracted LREC 315 support provided through Overseas Contingency Operations funding, it is imperative for the 316

Marine Corps to adjust its force preparation and manpower processes to fill this critical gap. 317

LREC capabilities are currently provided in a decentralized manner through the training and 318

See Appendix E for full descriptions of LREC Basic, Fully Proficient, and Master levels.

Figure 1: Enabling the MAGTF education of individual Marines, mission tailored pre-deployment collective training, the MOS 319 requirements of several occupational fields, and the assignment of LREC professionals to the 320

MAGTF, geographic Marine Corps Forces (MARFORs), Joint staffs, and the interagency (see 321

Figure 1). The concept of support to provide the MAGTF with sufficient LREC capability is 322 described below. 323

2.1 Preparing the Force 325

The MAGTF is enabled by Marines who have at least the Basic LREC proficiency level. A 327

Marine with this level of LREC proficiency demonstrates a fundamental awareness of relevant 328 concepts and processes. Likewise, these Marines apply these competencies in practical situations 329 during the early stages of their careers. Marines are introduced to LREC concepts and skills at 330 the inception of their Marine careers. Enlisted Marines receive exposure to LREC concepts at the 331

Marine Corps Recruit Depots. The culture lessons embedded in the Corporal’s Course further 332 provide a primer to future LREC instruction. For officers, this preparation begins at TBS. 333

CAOCL provides live mission-focused unit training in support of pre-deployment training 335 requirements, formal or MOS-producing schools, and resident PME programs at Marine Corps 336

University (MCU) to support requirements primarily at the Basic LREC competency level. 337

CAOCL training is based on LREC training and readiness tasks that reside in community-based 338

T&R manuals that support Mission Essential Tasks. CAOCL instructional support for the 339 operational forces increased in terms of overall number of Marines trained and educated, and has 340 diversified from an initial OIF/OEF posture to a globally deployable focus.

Of note, CAOCL 341 live instruction spans the entire range of LREC competencies from Basic to Fully Proficient and, 342 ultimately, the Master level. 343

Marine Corps Intelligence Schools (MCIS) and the Marine Detachments (MARDET) at the 345

Defense Language Institute (DLI) and Goodfellow Air Force Base (San Angelo, TX) provide 346 extensive training for Marine Corps cryptologic linguists at the Basic LREC competency level. 347

Basic language proficiency (ILR Level 2 on the Defense Language Proficiency Test – DLPT) is 348 a MOS requirement for Marines serving in the 267X MOSs. The combination of training 349 received at MARDET DLI and MARDET Goodfellow provides the Corps’ cryptologic linguists 350 with a solid foundation in the global and technical foreign language skills required to execute the 351

Signals Intelligence (SIGINT) missions of the Radio Battalions in each of the three Marine 352

Expeditionary Forces (MEFs), Marine Corps Forces Special Operations Command (MARSOC), 353

Marine Corps Forces Cyber Command (MARFORCYBER), and Marine Cryptologic Support 354

Battalion. 355

Deputy Commandant for Plans, Policies, and Operations (DC, PP&O) relies on a multifaceted 357 approach to training and educating the Marines who comprise the FAO, RAO, and FAS 358 programs. These programs include formal education through the Naval Postgraduate School 359

(NPS) and other academic institutions. Additionally, Marines in these programs must 360

CAOCL’s training totals for FY13 were 24,319 and current FY15 data shows 65,150 Marines trained - a net increase of 41,000. Current FY15 tracking indicates there are more PACOM LREC training requests than

CENTCOM. Source: CAOCL Training Database, “August Close-Out FY15”.

demonstrate expertise acquired through regional travel and/or experience related to their 361 assigned region and corresponding culture(s). 362

2.2 Developing Proficiency 364

A Marine at the Fully Proficient LREC level demonstrates a thorough understanding of core 366 concepts and processes with an ability to apply regional and/or cultural competency in routine 367 and increasingly complex situations. Capability at this level typically involves several different 368 types of professional development. It often includes advanced training, education, or experience 369 in a LREC-related topic, such as socio-cultural analysis tradecraft, the incorporation of culture in 370 the planning process, communication through an interpreter, and the military culture of a specific 371 area. There are several MOS communities that require a Fully Proficient level of LREC 372 capability, such as Civil Affairs and Foreign Security Force Advisor MOSs. Because each 373

MAGTF will likely possess a small cadre of LREC Fully Proficient Marines, advanced tasks 374 such as low-level negotiations, liaison with coalition partners and host nation governments, and 375 green cell analysis in the planning process will be filled by LREC proficient personnel whenever 376 possible. 377

To support the 35th Commandant’s requirement for every career Marine to achieve a foundation 379 of LREC competency, CAOCL supports complementary training and education requirements 380 through a managed blend of live training and online education through the RCLF Program. 381

CAOCL’s foundational instruction includes culture-general concepts and skills, culture-specific 382 knowledge, and regional knowledge. Culture-general concepts and skills are advantageous to the 383 individual Marine because they are transferable between different areas of operations. They 384 provide a basis for identifying, gathering, analyzing, and understanding cultural information, as 385 well as acting in cross-cultural situations. Culture-general education is reinforced by culture-386 specific knowledge. Culture-specific curriculum addresses cultural patterns and processes of 387 particular groups or networks that may not be limited to a defined region. Regional knowledge is 388 applicable across a broad geographical area. This knowledge includes, but is not limited to, 389 transnational issues (e.g. migration, trade, human trafficking), state-to-state interactions, broad 390 economic and political trends, and cultural patterns that are common or prominent in populations 391 of the region. Regions may be defined differently depending on mission or other purpose. 392

CAOCL’s RCLF Program is an important advancement in Marine Corps LREC capability.

As 394 stated in the Marine Corps Service Campaign Plan (MCSCP), the goal of the RCLF Program is 395 to expand regional specialization through a fully developed and phased RCLF Program by 396

September, 2016.

The RCLF Program is a career-long training and education program designed to introduce, 399 develop, and sustain a foundation of LREC skills and concepts across the Total Force. The 400 mission of the RCLF Program is to ensure Marines are globally prepared and regionally focused 401 so that they are effective at navigating and influencing the 21st century operating environment in 402 support of Marine Corps missions and requirements. The RCLF Program is aimed at the career 403 force, complementing and enhancing existing Service and Joint PME requirements for sergeants 404

Regional, Culture, and Language Program, MROC Decision Memorandum 38-2012, 24 May, 2012, p. 1.

Marine Corp Service Campaign Plan 2012-2020, p. 25.

through lieutenant colonel. Reaching career Marines early in their development, RCLF 405 incentivizes talented and motivated Marines to pursue advanced LREC learning in order to be 406 better qualified for accession into competitive programs such as Marine Security Guard, 407

MARSOC, and FAO/RAO/FAS. 408

The RCLF Program assigns Marines, at the rank of sergeant or second lieutenant, to one of 17 410 regions for career length study. The distribution of regional assignments across the Service 411 ultimately supports Marine Corps preparedness for global employment and reinforces the MEF 412

Regionalization policy by providing unit commanders with culturally informed and competent 413

Marines. 414

The RCLF Program takes a realistic approach to language training. It is assumed that the 416 majority of Marines will not be able to dedicate the significant time required to achieve even 417 novice status as measured by a DLPT score of 0 to 0+. The program, thus, provides a 418 foundational language package intended to provide Marines with a functional capability. The 419

RCLF Program leverages an existing DLI training aid called HeadStart 2, which provides in 420 excess of 1,000 command phrases and pleasantries. The program also provides a foundation in 421 communicating through interpreters, exposure to regional/cultural non-verbal communication, 422 and other cross-cultural competencies skills. HeadStart 2 curriculum is designed to enhance the 423

Marine’s ability to communicate across cultural barriers. 424

Other key organizations that develop Fully Proficient LREC Marines are Marine Corps Forces 426

Command’s (MARFORCOM) MCSCG, PP&O’s MCIOC, and Training Command’s (TngCom) 427

MCCMOS. MCSCG conducts MOS training for Foreign Security Force Advisors and also 428 provides individual and/or collective training for units that must be capable of accomplishing 429 security cooperation-related METs. MCIOC conducts MOS training for Information Operations 430

(IO) Marines and provides IO detachments in support of MAGTFs that must be capable of 431 influencing foreign populations. MCCMOS conducts MOS training for Civil Affairs Marines 432 that must be capable of interacting with foreign populations and be proficient in leading a green 433 cell as part of the planning process. The Training & Readiness Manuals for these occupational 434 fields establish the associated LREC training requirements. 435

The Marine Corps Intelligence Foreign Language Program (MCIFLP) is specifically designed to 437 provide opportunities to sustain and enhance the proficiency levels of linguists who serve within 438 the Intelligence Community (IC). MCIFLP efforts range from on-site language labs, to resident 439 language programs, to resident immersion training. Over the last decade, MCIFLP has proven its 440 worth as a means of acquiring language capabilities to support or enhancing foreign language 441 proficiency of Intelligence Marines participating in OEF and OIF. In the near term, MCIFLP will 442 be inextricably linked to the ability of our cryptologic linguists to meet DoD requirements on the 443

DLPT. Intelligence Department centrally manages MCIFLP, while Command Language 444

Program Managers execute the program at the unit level. This efficient and effective construct 445 enables robust language training and reduces time away from home station, time awaiting 446 training, time away from mission, and travel costs. 447

Additionally, the Marine Corps Foreign Language Proficiency Bonus (FLPB) Program has 449 played a critical role in the identification and tracking of Marines possessing a foreign language 450 skill. The FLPB program is designed to recognize and reward Marines who have acquired and 451 maintained proficiency in a foreign language. FLPB, as an incentive, has been instrumental in 452 the growth of the number of Marines who meet required foreign language proficiency standards. 453

2.3 Developing Professionals 455

A Marine at the Master LREC level demonstrates extensive depth and breadth of expertise in 457 advanced concepts and processes and applies cross-cultural competency in highly complex or 458 ambiguous situations within and across disciplines. Marines that achieve the Master-level LREC 459 proficiency must maintain MOS credibility in the operating forces, while simultaneously 460 operating at this level of proficiency as an acknowledged authority, advisor, and key resource. 461

Although most of these Marines achieved expertise in a foreign language, graduate-level 462 knowledge of a region and culture, such as that possessed by regional affairs officers, may also 463 be classified at the Master-level proficiency. These specialized personnel enable a MAGTF 464 through activities such as leading green or red cells during planning, conducting direct 465 coordination with partner or allied militaries and the interagency community, planning and 466 conducting LREC training for MAGTF personnel, and providing political-military advice to the 467 commander. 468

DC, PP&O manages the IAP, which identifies, selects, trains, tracks, and employs a cadre of 470 officers and Staff Non-Commissioned Officers (SNCOs) that maintain LREC and political-471 military expertise. The IAP program manages several Free MOS (FMOS) communities: FAOs, 472

RAOs, and FASs. Marines may access to these FMOSs through a study-track program or 473 through experience-track application. Under the study track, FAOs must have achieved at least 474

2/2 on the DLPT, earned a regionally focused Master’s degree, and have at least twelve months 475 of professional experience in the region. Likewise, RAOs must have earned a regionally focused 476

Master’s degree. FAS Marines must have scored at least a 1+/1+ on the DLPT, earned an 477

Associate’s degree, and have at least twelve months of professional experience in the region. 478

The experience-track requires commensurate academic, linguistic, and regional experience, 479 acquired through a Marine’s background and own initiative. The IAP also manages Marines 480 participating in the Personnel Exchange Program (PEP) and mission specific initiatives such as 481 the Afghanistan-Pakistan Hands program. These Marines, and those who study in foreign PME 482 institutions, typically receive the FAO, RAO, or FAS MOS upon successful completion of their 483 tour. Targeted utilization of FAO/RAO/FAS Marines to match their LREC skills to regionally 484 focused units and headquarters supports Service-level regionalization requirements and MEF 485 responsibilities laid out in the MCSCP.

Experience as FAOs, RAOs, or FAS Marines also 486 increases the competitiveness of our Marines for various assignments within the Defense Attaché 487

System and other national-level positions requiring significant LREC expertise. 488 In the role of SLA, DIRINT provides oversight for the development and staffing of language 490 professionals to the operating forces. These responsibilities are executed through the Marine 491

Corps Foreign Language Program (MCFLP). DIRINT is also responsible for developing 492 language professionals for employment in the SIGINT and Counterintelligence/Human 493

Intelligence communities. 494

Marine Corps Service Campaign Plan 2014-2022 (May 21, 2014), p. 37.

DIRINT is also responsible for developing the LREC capabilities of members of the Marine 496

Corps Intelligence, Surveillance, and Reconnaissance Enterprise (MCISRE) that require mid-497 level LREC proficiency to conduct their MOS duties. DIRINT is implementing an Individual 498

Language Training Program using innovative non-resident solutions in order to improve the 499 foreign language and cross cultural communication skills across the MCISRE workforce. This 500 program maintains the guiding principles of lifelong learning, socialization of effort, and unit 501 support. This program improves the ability of MCISRE personnel to perform front-end 502 processing of information in foreign languages and cultures and expand the opportunities for 503 coalition and partner nation engagement. 504

2.4 Managing LREC Capability: Now and in the Future 506

The management of LREC capabilities is difficult due to their complexity, diversity, and 508 sustainment challenges. All these factors complicate the tasks of training, measuring, tracking, 509 and coordinating programs and personnel. That said, the Marine Corps has made great strides in 510 developing LREC capabilities within the Corps and providing transparent management tools to 511 commanders in the operating forces to maximize the operational impact of Marines with these 512 capabilities. 513

LREC training and education are inherently complex because of the quantity and diversity of 515 knowledge relevant to foreign languages and culture. First, DoD recognizes well over 150 516 languages, with 35 encompassing the DoD Strategic Language List. Deciding upon which 517 languages to invest and to what level and with how many Marines is challenging. True fluency 518 usually demands five to seven years, an immersive environment, and sustainment. Even 519 acquiring measurable foreign language proficiency is problematic due to the significant time 520 investment required. This type of investment is not practicable for the vast majority of military 521 personnel comprising the Total Force, who may only be required to train to a desired functional 522 language capability in a particular domain of vocabulary driven by mission requirements. 523

Furthermore, language skills are perishable. Like physical fitness, language skills must be 524 maintained through regular training. Providing this type of sustainment training to a 525 decentralized and low-density (by language) population has traditionally presented a serious 526 challenge to all the Services. For the regional expertise and culture (REC) portions of LREC, 527 imparting knowledge of social institutions, histories, environments, political and economic 528 systems, and cultural norms for each of the cultural groups Marines will encounter is a daunting 529 task. The number of potential regions and cultures are almost unlimited – creating a need for 530 avoiding duplication of effort and efficient administration practices. Additionally, maintaining 531 accurate REC data is an endless task that requires a high degree of dedication and organization. 532

The complexity, diversity and sustainment of LREC knowledge and skills generate similar 534 challenges for LREC management activities, such as the generation and application of standards 535 for training and education program design, as well as individual and unit readiness in accordance 536 with the LREC CJCSI proficiency levels. The Marine Corps approaches LREC management 537 with a nuanced understanding of this challenge and employs a comprehensive, yet flexible, 538 training and education framework that meets the Commandant’s intent of ensuring Marines and 539

Marine Corps units have the LREC capability they need to accomplish operational objectives. 540

Figure 2 provides a general overview of the alignment of the training and education continuum, 541 specialized MOSs, and the CJCSI standards. LREC management must reduce wasteful or 542 duplicative activities and simultaneously support career-length LREC individual study, 543 sustainment of expertise, and guidance for long term training and education to meet the needs of 544 deploying units. Management must also support and inform leaders and planners who design and 545 conduct LREC training and education to meet the ever evolving operational requirements. 546

In support of these goals, the Marine Corps must capitalize on the innate knowledge and skills 548 that Marines from diverse cultural, educational, and social backgrounds possess. It is also 549 desirable that the Marine Corps provide Marines who display natural aptitude and avid interest in 550 developing their LREC knowledge and skills constructive assistance in furthering their abilities 551 through proactive screening, training, education, and opportunities to use them. As an initial 552 step, Deputy Commandant, Manpower and Reserve Affairs (DC, M&RA) has made information 553 about a Marine’s RCLF regional assignment, language skills, and special skills or education 554 accessible at the unit level with a niche capability tracking system available through the 555

Command Profile program and the Marine Corps Total Force System. This increased visibility 556 allows commanders to better leverage their unit’s talents to meet operational requirements. 557

Figure 2: Integrating LREC

Additionally, talent and career management of our professional linguists should be a coordinated 559 effort among the various occupational field managers, program managers, and DC, M&RA. 560

LREC skills should be considered as a factor within the assignments, especially in instances 561 where Marines are selected for assignment as a Marine Attaché or for similar duties. 562

In addition to the human element of our LREC capabilities, the Marine Corps must also look at 564 the material or machine components of LREC. The Marine Corps must generate the 565 requirements for and investigate the increased use of technology in LREC training, education, 566 and operational scenarios. In concert with our DoD and Service partners, web-based training and 567 education applications need to be explored. Examples include traditional computer-based 568 training and synchronous or asynchronous instructor-led virtual training. In the future, machine-569 based translation systems could prove themselves to be force multipliers, especially as those 570 technologies mature. 571

The complexity of developing, enhancing, and sustaining LREC capabilities requires that 573 appropriate resources and manpower be provided to the organizations responsible for their 574 development across the DOTMLPF pillars, including MCSCG, CAOCL, MCIS, MCIOC, 575

MCCMOS, and the various staffs responsible for the development and execution of LREC 576 policies and programs. 577

Figure 3: LREC Community of Interest

Chapter 3: LREC Advocacy 579

The Commandant of the Marine Corps (CMC) receives advice and recommendations from 581 multiple sources to support key decisions associated with his statutory responsibilities 582 concerning manpower, training, and resourcing matters directly affecting the capabilities and 583 effectiveness of the Corps. The Marine Corps assigns advocates and proponents for 584 organizational and functional areas to ensure CMC receives informed input and 585 recommendations on these matters. The advocacy process results in increased communication 586 and representation of operating force requirements and interests within HQMC processes and the 587

MCCBA. 588

LREC is a sophisticated functional area 589 that affects all mission sets related to 590

Marine expeditionary operations. Only 591 sustained, strong advocacy will ensure 592 the continued development and 593 institutionalization of a Marine Corps 594

LREC capability sufficient for the 21st 595 century security environment. Effective 596 advocacy will result in better educated, 597 trained, and ready personnel, informed 598 capability development, and responsive 599 organizations. Figure 3 displays the 600 relationship between the LREC 601

Advocate and Proponents, as well as 602 some of the other primary Marine Corps 603 commands or organizations that enable 604 or use LREC capabilities. These 605 relationships and the respective 606 responsibilities are addressed in 607 subsequent portions of this strategy. 608

3.1 The LREC Advocate, Proponent, and Community of Interest 610

DC, CD&I, as the LREC Advocate, shall coordinate with the operating forces and supporting 612…