What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

April 2010

LANGUAGE ACCESS

Selected Agencies Can Improve Services to Limited 

English Proficient Persons

Highlights of GAO-10-91, a report to 

congressional requesters 

Executive Order 13166 (August 11, 

2000) directs each federal agency 

to improve access to federal 

programs and services for persons 

with limited English proficiency 

(LEP). Using guidance issued by 

DOJ, agencies are generally 

required to develop recipient 

guidance and/or an LEP plan 

outlining steps for ensuring that 

LEP persons can access federal 

services and programs. As 

requested, GAO (1) determined 

which agencies have completed 

their recipient guidance and LEP 

plan, (2) assessed the extent to 

which the selected agencies have 

implemented the Executive Order 

consistent with DOJ’s guidance, 

and (3) examined DOJ’s and the 

three selected agencies’ efforts to 

enhance collaboration. GAO 

analyzed the Executive Order and 

agencies’ recipient guidance and 

plans posted on LEP.gov; selected 

the IRS, FEMA, and SBA for this 

review because of the amount and 

significance of their interaction 

with LEP persons; and reviewed 

documentation of agencies’ 

collaborative efforts to provide 

access to federal services.

As of February 2010, 22 agencies have completed their recipient guidance. 

Additionally, DOJ has reported receiving LEP plans from 58 federal agencies. 

However, the total number of agencies required to complete recipient 

guidance and an LEP plan cannot be determined because the Executive Order 

makes agencies responsible for determining the need for guidance and a plan 

based on their interaction with LEP persons and does not require agencies to 

report on the results of their determination. Consequently, some agencies may 

determine that drafting a recipient guidance or an LEP plan is not necessary. 

Further, although the Executive Order requires agencies to make recipient 

guidance public, the same requirement does not exist for plans. DOJ’s 

guidance contains four elements for improving access to federal programs and 

services by LEP persons. IRS has fully addressed each of these elements, 

while FEMA and SBA have made less progress, as shown in the table below. 

Elements for Improving LEP Access Addressed by the Selected Agencies 

Element Description IRS FEMA SBA

1. Agency

 commitment

2. Needs

assessment

3. Service

 delivery

Issuance and implementation of agencywide LEP plan and 

issuance of guidance to funding recipients, as well as integrating 

services into strategic planning, processes, and resource 

allocation.

Collection of data on size of LEP customer base, frequency of 

contact, and the level of service provision needed.

Systematic and strategic provision of services and outreach 

provided through internal resources, technology, and partner 

organizations.

Stakeholder feedback, ongoing measurement of resources used 

and program outputs and outcomes, and compliance with civil 

rights requirements.

4. Monitoring

Fully implemented Partially implemented Not implemented

Source: GAO analysis of Executive Order 13166 and DOJ guidance.

IRS has centralized its language access services within one office, overseen by 

an agencywide executive council. Additionally, IRS regularly identifies the 

LEP populations it serves, administers a variety of targeted language access 

services, and monitors these services for potential improvements. FEMA has 

demonstrated agency commitment, identified LEP populations, and delivered 

services during disasters, but it lacks a structured approach to monitor these 

services. While SBA is continuing to draft its LEP plan, the agency does not 

conduct a needs assessment, and provides limited monitoring of services to 

LEP populations. 

Among the three agencies GAO reviewed, FEMA collaborates with SBA and 

IRS to provide LEP persons a centralized location for receiving assistance 

during a declared disaster. Additionally, these agencies (along with 21 other 

federal agencies), participate in an Interagency Working Group on LEP issues. 

GAO identified a potential shared services approach agencies could use for 

translation and interpretive services. 

What GAO Recommends

GAO recommends that DOJ, DHS, 

FEMA, IRS, and SBA take a variety 

of steps to ensure that LEP persons 

can access federal services and 

programs. All five agencies agreed 

with our recommendations and 

provided technical changes that 

have been incorporated into this 

report, as appropriate. 

To view the Spanish translation of this 

highlights page, please see 

http://www.gao.gov/highlights/d10685high.pdf. 

View GAO-10-91 or key components. 

For more information, contact Robert 

Goldenkoff at (202) 512-6806 or 

goldenkoffr@gao.gov.