Military Education: DOD Needs to Develop Performance Goals and	 
Metrics for Advanced Distributed Learning in Professional	 
Military Education (30-JUL-04, GAO-04-873).			 
                                                                 
As part of its transformation to prepare the armed forces to meet
current and future challenges, the Department of Defense (DOD) is
expanding its use of advanced distributed learning (ADL)	 
techniques in senior- and intermediate-level officer professional
military education (PME). ADL instruction does not require an	 
instructor's presence, and it facilitates the use of varied	 
learning management systems. To date, the application of ADL has 
been targeted to nonresident students. To determine whether DOD  
uses a systematic process for evaluating the results of ADL	 
application, GAO was asked to examine DOD's metrics for assessing
program effectiveness, to compare DOD's criteria for converting  
courses to ADL with those of private-sector institutions, and to 
identify the challenges to ADL implementation.			 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-04-873 					        
    ACCNO:   A11185						        
  TITLE:     Military Education: DOD Needs to Develop Performance     
Goals and Metrics for Advanced Distributed Learning in		 
Professional Military Education 				 
     DATE:   07/30/2004 
  SUBJECT:   Education or training				 
	     Education program evaluation			 
	     Educational facilities				 
	     Military personnel 				 
	     Military training					 
	     Schools						 
	     Military officers					 
	     Performance measures				 
	     Comparative analysis				 
	     Private sector practices				 
	     Evaluation criteria				 
	     Evaluation methods 				 

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GAO-04-873

United States Government Accountability Office

GAO	Report to the Ranking Minority Member, Committee on Armed Services, House of
                                Representatives

July 2004

MILITARY EDUCATION

  DOD Needs to Develop Performance Goals and Metrics for Advanced Distributed
                  Learning in Professional Military Education

                                       a

GAO-04-873

Highlights of GAO-04-873, a report to the Ranking Minority Member,
Committee on Armed Services, House of Representatives

As part of its transformation to prepare the armed forces to meet current
and future challenges, the Department of Defense (DOD) is expanding its
use of advanced distributed learning (ADL) techniques in senior- and
intermediate-level officer professional military education (PME) (see
table at right). ADL instruction does not require an instructor's
presence, and it facilitates the use of varied learning management
systems. To date, the application of ADL has been targeted to nonresident
students. To determine whether DOD uses a systematic process for
evaluating the results of ADL application, GAO was asked to examine DOD's
metrics for assessing program effectiveness, to compare DOD's criteria for
converting courses to ADL with those of private-sector institutions, and
to identify the challenges to ADL implementation.

GAO recommends that the Secretary of Defense promote (1) the development
of specific performance effectiveness goals

July 2004

MILITARY EDUCATION

DOD Needs to Develop Performance Goals and Metrics for Advanced Distributed
Learning in Professional Military Education

DOD does not have specific performance goals and metrics with which to
assess ADL effectiveness in PME. Furthermore, although GAO and
private-sector organization have established frameworks for assessing the
effectiveness of educational programs by focusing on metrics for learning
outcomes-that is, the knowledge, skills, and abilities that students
attain through learning activities-DOD's oversight focuses instead on
educational inputs such as facilities, student to faculty ratios, and
student body composition. Since ADL is still a new and evolving tool,
systematic evaluative processes have not yet been required. Without clear
goals and an effective process for evaluating the results of ADL
application, DOD cannot ensure that its program is achieving an
appropriate return on investment and other goals.

The criteria for converting PME courses and curricula to ADL vary by
school and by military service, are based on subjective choices as to
which content is suited for online delivery, and are focused solely on
nonresident programs. The private sector similarly lacks systematic
criteria in its use of ADL. However, DOD's implementation of ADL programs
for PME compares favorably with private-sector institutions.

Cultural, technological, and resource challenges affect ADL
implementation. For example, some military policies reflect a lower
estimation of the value of nonresident PME, and many respondents to a
survey of ADL students and alumni indicated that its quality and
achievement of outcomes did not compare favorably, in their view, with
those of resident education programs. The technological challenges of
balancing computer access with network security, along with resource
challenges of funding and increased burdens on limited administrative
staff, are additional concerns.

DOD Nonresident PME Programs Currently Using ADL Applications

for ADL in PME schools and (2) the use of ADL technologies to provide and
establish metrics for learning outcomes. DOD partially concurred with the
first recommendation and fully concurred with the second. DOD supports the
use of specific effectiveness goals for PME, but believes such goals are
not appropriate for any specific delivery method.

                          When and how     No. of   Program    No. of   
                            developed    students   length     courses  
          U.S Army War                                           10 + 2 
                                                               resident 
            College      1999 (In-House)      654   2 yrs.     courses  
           Naval War     2002                                 
            College      (Contractor                          
                          and In-House)     1,799 18-24 mos.      3     
        Air Command and                                       
                                                  Up to 18        6     
         Staff College   1999 (In-House)   12,069 mos.        

Source: GAO.

www.gao.gov/cgi-bin/getrpt?GAO-04-873.

To view the full product, including the scope and methodology, click on
the link above. For more information, contact Neal P. Curtin at (757)
552-8100 or [email protected].

Contents

  Letter

Results in Brief
Background
DOD Does Not Have Specific Metrics for Assessing Performance

Goals or Learning Outcomes ADL Conversion Varied by School and by Service
Based

on Subjective Assessments of Content Suitability Cultural, Technological,
and Resource Barriers and Challenges

Affect ADL Implementation in PME Programs Conclusions Recommendations for
Executive Action Agency Comments and Our Evaluation

1 2 4

6

13

16 19 20 20

Appendixes

Appendix I:

Appendix II:

Appendix III:

Appendix IV:

Appendix V:

Scope and Methodology 22

Methodology for Our Survey of Nonresident PME Students
and Graduates 25
The Study Population 25
Developing the Survey 26
The Sample Design and Administration 26
Sampling Error 27
Nonsampling Error and Data Quality 28

Survey Responses 29
Introduction 29
Frame of Reference 29

ADL Applications and Additional Features
of Nonresident Programs 41
U.S. Army War College 41
Naval War College 41
Air Command and Staff College 42
Joint Forces Staff College 42
Additional Features of Nonresident PME Programs 43

Comments from the Department of Defense 45 GAO's Comment 47

                                    Contents

Tables Table 1: Enrollment Statistics for Resident and Nonresident

Students for Each Senior-and Intermediate-Level PME

School for the Academic Year 2003-2004 5

Table 2: Disposition of Sample 27 Table 3: Levels-of-Learning Definitions
44

Abbreviations

ACSC Air Command and Staff College
ADL advanced distributed learning
DOD Department of Defense
JFSC Joint Forces Staff College
NWC Naval War College
PME professional military education
USAWC U.S. Army War College

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separately.

A

United States Government Accountability Office Washington, D.C. 20548

July 30, 2004

The Honorable Ike Skelton Ranking Minority Member Committee on Armed
Services House of Representatives

Dear Mr. Skelton:

As part of its transformation to prepare the armed forces to meet current
and future challenges, the Department of Defense (DOD) is transforming the
way it trains to favor more rapid and responsive deployment. A significant
element of its training transformation strategy is the application of
advanced distributed learning (ADL), a technique of instruction that does
not require an instructor's presence; can use more than one form of media;
and emphasizes the use of reusable content, networks, and learning
management systems. DOD has been expanding its use of ADL in its program
of professional military education (PME). PME provides military officers
with a wide array of college-level academic courses in both resident and
nonresident settings; to date, the application of ADL has been targeted to
nonresident students. As a new tool, ADL is being examined to determine
whether DOD is applying a systematic performance evaluation approach,
particularly in light of the increased rate at which servicemembers are
being deployed worldwide. Without clear goals and an effective process for
evaluating the results of ADL application, DOD cannot ensure that its
program is achieving an appropriate return on investment and other goals.

We were asked to review DOD's use of ADL in senior-and intermediatelevel
officer PME, and specifically:

1.

2.

3.

to examine the metrics DOD uses to assess the effectiveness of ADL in PME,

to determine what processes and criteria DOD uses to select the courses or
curricula it converts to ADL and how these criteria compare with those of
other institutions in meeting ADL objectives in nonresident education, and

to identify what barriers and challenges exist for implementing ADL in
PME.

We also reviewed and assessed the policies and guidance of several DOD
offices responsible for providing oversight for PME activities. These
offices included the Under Secretary of Defense for Personnel and
Readiness and the Joint Staff's Joint Education Branch. We also studied
experience in the private education sector and in other parts of the
government in measuring the effectiveness of education programs. In
addition, we surveyed 437 current students and graduates of senior- and
intermediate-level PME programs to obtain their perspectives on their PME
experience. Appendixes I and II describe our scope and methodology in more
detail.

We conducted our review from March 2003 through June 2004 in accordance
with generally accepted government auditing standards.

Results in Brief	DOD does not have specific performance goals or metrics
with which to assess the effectiveness of ADL in PME, and its oversight
activities focus on educational inputs rather than on learning outcomes.
While DOD believes ADL has had a positive impact, its views are based on
anecdotal information; clear goals and an effective process for evaluating
results of ADL implementation are absent. Although numerous organizations
have roles in providing oversight of PME activities, with several
specifically responsible for ensuring that PME meets general standards of
accreditation, DOD accreditation activities, like those in the private
sector, focus primarily on educational process inputs-for example,
facilities or student to faculty ratios. But we and a private-sector
organization have established guidelines and frameworks for assessing the
effectiveness of educational programs that stress a focus on measurable
outcomes-that is, the knowledge, skills, and abilities a student acquires
from a course. Furthermore, ADL has a unique ability to capture, retain,
store, and document interactions in an online environment, thus providing
the opportunity to demonstrate student skill improvements and to customize
performance metrics. However, we found no evidence to indicate that DOD is
using this ability.

The processes for converting PME courses and curricula to ADL vary by
school and by military service, and they feature a mixture of in-house and
contractor approaches. PME schools generally focus their ADL applications
on nonresident education programs, and they tend to convert an entire
curriculum as a package rather than in a modular, course-by-course manner.
No systematic criteria inform PME schools' decisions about which courses
or curricula to convert to ADL. Instead, schools make individual,
subjective choices as to which content is best

suited for online rather than another delivery method. Notably, we found
that nonmilitary educational institutions also lack systematic criteria
when converting courses or curricula to ADL. DOD's approaches are in fact
consistent with mainstream practice, and in some cases, compare favorably
with the best implementations.

Numerous cultural, technological, and resource challenges affect ADL
implementation in PME programs, some which may affect ADL expansion or
maintenance. Cultural issues include concerns by PME school officials
about ADL's acceptance as an appropriate learning method and the
appropriate extent of its use for nonresident education. In our survey,
nonresident students expressed concerns about the quality of their
courses, regardless of nonresident delivery method, as compared with those
taken in residence. Technological challenges, particularly those
concerning the optimal balance between student access (computer
availability and freedom of information) and network security (protection
of sensitive information and use of military installation firewalls),
remain to be addressed. With respect to resources, there are concerns
about ADL's ability to compete for limited funding and about the
potentially burdensome administrative impact on nonresident program staff.

To better assess the effectiveness of ADL in professional military
education, we recommend that DOD promote (1) the development of specific
performance effectiveness goals for ADL in PME schools and (2) the use of
ADL technologies to provide and establish metrics for learning outcomes.

In commenting on a draft of this report, DOD partially concurred with our
first recommendation and fully concurred with the second. DOD supports the
use of specific effectiveness goals for PME, but believes such goals are
not appropriate for any specific delivery method. DOD stated that current
accreditation practices are already promoting the data collection
capabilities of ADL technologies for assessing multiple delivery methods.

Background	Each military service has separate PME schools for senior- and
intermediate-level officers. As defined by the Joint Staff's Officer
Professional Military Education Policy,1 the senior-level schools,
typically for O-5 and O-6 ranked officers, focus on warfighting within the
context of strategy. The intermediate-level schools, typically for O-4
ranked officers, focus on warfighting within the context of operations.2
(See table 1 for a list of PME schools and enrollment totals.)

The senior-and intermediate-level PME schools are not alike in terms of
program offerings for resident and nonresident students. As indicated in
table 1, while all senior-level PME schools offer resident programs, only
the Army War College and the Air War College have analogous nonresident
programs. Also as indicated in table 1, all intermediate-level PME schools
offer resident and nonresident programs.

DOD has approximately 39,318 students enrolled in its senior- and
intermediate-level PME schools. The vast majority of these enrollees are
nonresident students. Of the total enrolled, approximately 3,788, or 10
percent, are taking course work as resident students; the rest, or 90
percent, are nonresident enrollees.

1 Department of Defense, Chairman of the Joint Chiefs of Staff Instruction
1800.01A, Officer Professional Military Education Policy, December 2000.

2 There are also senior-and intermediate-level schools sponsored by DOD
through its National Defense University. These schools are designed to
educate officers on joint matters. The senior-level schools are the
National War College, the Industrial College of Armed Forces, and the
Joint and Combined Warfighting School-Senior at the Joint Forces Staff
College. The intermediate-level school is the Joint and Combined
Warfighting School-Intermediate at the Joint Forces Staff College.

Table 1: Enrollment Statistics for Resident and Nonresident Students for
Each Senior- and Intermediate-Level PME School for the Academic Year
2003-2004

PME institutions Resident students Nonresident students Joint Senior-Level
                                    Schools

                          National War College 200 N/A

                 Industrial College of the Armed Forces 309 N/A

                          Joint Combined-Level School

                       Joint Forces Staff College 229 N/A

                Senior-Level Schools Intermediate-Level Schools

                    Air War College                      265            6,100 
                    Army War College                     340     
       College of Naval Warfare-Naval War College        209              N/A 
                Marine Corps War College                  16              N/A 

                Air Command and Staff College                587       12,069 
           Army Command and General Staff College           1,183     10,000a 
    College of Naval Command and Staff-Naval War College     256      1,799 b 
           Marine Corps Command and Staff College            194    
        Marine Corps College of Continuing Education          c         4,908 
                            Total                           3,788      35,530 

Source: DOD.

Note: N/A-School without a nonresident component.

aAccording to Army Command and General Staff College officials, the
nonresident student total fluctuates and could be plus or minus 2,000
students on any given day.

bNaval War College's nonresident programs are offered at the intermediate
level (equivalent to the Naval Command and Staff College) through its
College of Distance Education.

cThe Marine Corps College of Continuing Education is the nonresident
component of the Marine Corps Command and Staff College.

Nonresident PME exists to provide PME to a larger population than can be
supported in resident institutions. Nonresident PME provides alternative
learning-style options for officers not selected for residence or unable
to participate in residence due to operational commitments. The military
services have had nonresident PME programs for many years. The Naval War
College (NWC) has had a department for correspondence courses since 1914.
The U.S. Army War College (USAWC) has provided a nonresident course
offering since 1968. The Air Force's nonresident programs were created in
1947 for its senior-level PME school and 1948 for its intermediate-level
PME school.

Paper-based correspondence is the traditional nonresident PME delivery
mode. Students complete correspondence courses individually with limited
faculty contact. Course materials and submissions are exchanged between
students and faculty primarily by mail. PME schools have implemented other
delivery modes, including seminars conducted at remote sites by PME
faculty and CD-ROM distribution. Increasingly, PME schools are using ADL3
techniques in their nonresident program offerings.

Several ADL applications are currently in use at senior- and
intermediatelevel PME schools, and all of them are focused on nonresident
programs. They are offered at the U.S. Army War College, the Naval War
College, and the Air Command and Staff College (ACSC). A planned ADL
offering for reserve component staff is under development at the Joint
Forces Staff College. See appendix IV for details on these programs. The
addition of an ADL application for the Army Command and General Staff
College nonresident PME course is anticipated for fiscal year 2005.

DOD Does Not
Have Specific Metrics
for Assessing
Performance Goals or
Learning Outcomes

DOD does not have specific performance goals and metrics to assess the
effectiveness of ADL in PME. While DOD believes ADL has had a positive
impact, its views are based on anecdotal information, rather than a
systematic performance measurement. Thus, DOD cannot determine whether ADL
is meeting performance goals in comparison to other delivery methods.
Although numerous organizations are providing oversight of PME activities,
with several specifically responsible for ensuring that PME meets general
standards of accreditation, these organizations do not focus on student
learning outcomes-that is, the knowledge, skills, and abilities a student
acquires from a course. Instead, DOD accreditation activities, like those
in the private sector, focus primarily on educational process inputs, such
as quality of facilities and student faculty ratios. We and a
privatesector organization have recently established guidelines and
frameworks for assessing the effectiveness of educational programs that
stress a focus on measurable outcomes. ADL is a new and evolving tool for
which systematic evaluation requirements have not been established. ADL
has a unique ability to capture, retain, store, and document interactions
in an online environment, which provides the opportunity to demonstrate

3 Advanced distributed learning, as defined by DOD's April 1999 ADL
Strategic Plan and May 2000 ADL Implementation Plan, expands distance
learning by emphasizing computer-based instruction; common standards; and
use of reusable content, networks, and learning management systems in an
"anytime, anyplace" environment.

student skill improvements, and thus to customize performance metrics.
However, we have found no evidence to indicate that DOD is utilizing this
ability.

Numerous Organizations Have Roles in Providing Oversight of PME Activities

Numerous oversight organizations review PME activities, with several
organizations specifically designed to ensure that PME conforms to general
standards of accreditation. The preeminent mechanism for oversight is the
Joint Chiefs of Staff's Process for Accreditation of Joint Education. The
process is designed to provide oversight and assessment of PME
institutions for purposes of strengthening and sustaining Joint
Professional Military Education.4 It is a peer-review process involving a
self-study component and a team assessment. The review sequence includes
certification, accreditation, and reaffirmation of accreditation status.
Accreditation can currently be granted for up to 5 years, and all PME
programs with current ADL applications are Joint Staff-accredited. The
Joint Staff also sponsors the Military Education Coordinating Council, an
advisory body composed of high-ranking PME leadership. The purpose of the
Council is to address key issues of interest for joint military education,
to promote cooperation and collaboration among member institutions, and to
coordinate joint education initiatives.

The military services have responsibility for the service PME institutions
in terms of managing PME content and quality and conducting all levels
within the guidelines of the military educational framework. Consistent
with Title 10 of the United States Code, the Secretary of Defense requires
that each PME institution periodically review and revise curriculum to
strengthen focus on joint matters and on preparing officers for joint duty
assignments.

PME is also reviewed by other internal and external organizations. Each
PME institution has a Board of Visitors/Advisors that provides guidance
over PME activities. The Board of Visitors/Advisors is composed of
military and/or civilian academic officials who are nominated by PME
schools and appointed by service secretaries to provide advice on
educational and institutional issues. Service PME institutions have other
internal and

4 Joint Professional Military Education is a Joint Chiefs of
Staff-approved body of objectives, policies, procedures, and standards
supporting the educational requirements for joint officer management.
Joint Professional Military Education is a portion of PME that supports
fulfillment of the educational requirements of joint officer management.

external advisory committees that perform activities such as providing
advice, communicating feedback from major commands, and conducting
curriculum review. Service Inspector General offices have conducted
periodic reports and assessments on PME schools. The military services'
education and training commands also provide oversight of PME activities,
though not day-to-day administration. Additionally, private-sector
regional accreditation agencies assess senior-and intermediate-level PME
programs. Their accrediting activities generally guide the Joint Staff's
review process.

Performance-Effectiveness Metrics for ADL Implementation Are Lacking

PME schools have not established, and oversight organizations have not
reviewed, specific goals or metrics of performance effectiveness for ADL
implementation. As was stated in our recently issued guide for
establishing a framework for assessing training and development efforts in
the federal government, "it is increasingly important for agencies to be
able to evaluate training and development programs and demonstrate how
these efforts help develop employees and improve the agencies'
performance."5 The Sloan Consortium-a private-sector organization that
maintains a repository of information on distance education-views metrics
as crucial for assessing program effectiveness. For example, metrics can
(1) demonstrate that the "learning effectiveness" of nonresident education
is at least as good as that of its resident counterpart, (2) identify cost
comparisons that can be used to develop better strategic plans, and (3)
provide information on student retention and completion rates. As was
stated in our report on oversight for the military academies, such
elements embody the principles of effective management, in which
achievements are tracked in comparison with plans, goals, and objectives,
and the differences between actual performance and planned results are
analyzed.6

PME schools identified advantages of ADL over other means of delivery, but
the advantages appeared to be anecdotally derived. PME school officials
stated that ADL has resulted in quality improvements in PME delivery,
especially when compared with paper-based correspondence.

5 U.S. General Accounting Office, Human Capital: A Guide for Assessing
Strategic Training and Development Efforts in the Federal Government,
GAO-04-546G (Washington, D.C.: March 2004).

6 U.S. General Accounting Office, Military Education: DOD Needs to Enhance
Performance Goals and Measures to Improve Oversight of Military Academies,
GAO-03-1000 (Washington, D.C.: Sept. 10, 2003).

These advantages include (1) better facilitation of student and faculty
interaction; (2) increased flexibility in modifying course material; (3)
reductions in time required to complete programs; (4) better leveraging of
resources for administrative support; and (5) establishment of learning
management systems that monitor student progress and produce management
reports. But there were no indications that evidence for these advantages
were based on an evaluative effort to compare differences between ADL and
paper-based correspondence courses. Since PME schools have not detailed a
comprehensive process for evaluating ADL benefits over paper-based
correspondence, it cannot be determined whether ADL is meeting performance
goals based on appropriate returns on investment, student retention,
student access to courses, or other goals that schools use to measure
program effectiveness.

Additionally, we did not observe any oversight agency focus on specific
metrics of ADL effectiveness. According to Joint Staff officials, they
perform reviews of nonresident programs as part of their accreditation
activities. However, their reports focus on the nonresident program as a
whole and not on particular methods of delivery. ADL is a new and evolving
tool, and a systematic assessment of these applications has not yet been
required. The three regional accreditation agencies that review PME
schools with ADL implementations show variances in nonresident program
evaluation policy.7 One agency stated that nonresident programs are not
separately evaluated, although the programs may be included within the
scope of the institution's existing accreditation. Another agency stated
that additional procedures must be performed before nonresident programs
are included within the scope of the institution's accreditation. The
third agency required schools to evaluate its nonresident programs to
ensure comparability to resident programs. In addition, we have not
observed any Office of the Secretary of Defense or Board of
Visitors/Advisors reviews in relation to ADL effectiveness for nonresident
PME.

While we did not observe measures of effectiveness specifically geared
toward ADL applications, PME schools with ADL applications did perform
program effectiveness assessments for nonresident education by the way of
student satisfaction assessments as part of the Joint Staff accreditation

7 The Middle States Association of College and Schools is the regional
accrediting agency for the U.S. Army War College. The New England
Association of Schools and Colleges is the regional accrediting agency for
the Naval War College. The Southern Association of Colleges and Schools is
the regional accrediting agency for the Air Command and Staff College.

process. These assessments used in-course student surveys, graduate
surveys, and supervisory surveys to obtain feedback as part of a
systematic approach to instructional design and to update and improve
curriculum offerings.

o 	USAWC performs surveys of students, alumni, and general officers with
USAWC graduates in their commands. Students are surveyed for each course
regarding particular aspects of the course and general degrees of
satisfaction. A survey of alumni is conducted every 2 years. A general
officer survey, designed to assess general officer impressions of alumni,
will now be conducted annually instead of every 3 years, as in the past.
Prior feedback from general officer surveys reported that the curriculum
should emphasize application of strategic thinking to national security
issues. USAWC also performs internal course evaluations as part of its
curriculum assessment process. USAWC faculty members are required to
undergo training to provide a degree of standardization in instruction and
evaluation. This standardization, especially for evaluation, is more
stringent for nonresident education. USAWC can conduct trend analyses for
student performance and student satisfaction to determine statistical
significances.

o 	NWC uses student and alumni surveys to assess the academic program's
effectiveness. Depending on the department, student assessments include
daily sessions critiques, lecture critiques, end-of-course critiques,
major exercise critiques, and exam critiques. Alumni are sent
questionnaires 2 years after graduation asking for feedback on their
educational experience. All academic departments conduct an extensive
analysis of various student surveys to determine areas of the curriculum
that are not meeting student needs so that these areas can be improved.
Surveys are based on standards promulgated by accrediting agencies and
external organizations to help objectively measure institutional
excellence. Resident and nonresident student programs are measured the
same since a single faculty is responsible for both. Peer evaluation of
faculty members is used to sustain teaching method quality.

o 	ACSC uses internal and external evaluations at all phases of its
curriculum development process. It conducts end-of-course surveys that
focus on delivery and educational support and end-of-year surveys for
students to provide feedback about whether they believed the school (1)
prepared them to lead commands, (2) accomplished its mission, (3) was
institutionally effective, and (4) was beneficial to professional
development. Surveys are also given to graduates and

graduate supervisors to obtain perspectives on whether the school (1)
accomplished its mission and institutional effectiveness; (2) enhanced
graduates' ability to think operationally and critically; (3) prepared
graduates to assume leadership duties, and (4) made the experience
valuable in professional development.

Metrics for Learning Outcomes Are Lacking

Student learning outcomes, as stated by the Council for Higher Education
Accreditation-a national association representing accrediting
organizations-are "properly defined in terms of the knowledge, skills, and
abilities, that a student has attained at the end (or as a result) of his
or her engagement in a particular set of higher education experiences."8
PME schools generally are not assessed for student learning outcomes as a
means of determining program effectiveness. The Joint Staff's
accreditation organization responsible for assessing PME schools has
primarily focused on inputs to the educational process. As detailed in its
policy, its educational standard assessment and self-study requirements
focus on internal aspects such as organizational structure, facilities,
curricula, student to faculty ratios, student body composition/mix, and
faculty qualifications. However, as stated in our recently published guide
for assessing training and development programs, the focus on evaluating
activities and processes takes away from evaluating training and
development's contribution to improved performance, reduced costs, or
greater capacity to meet new and emerging transformation challenges.9 The
Joint Staff has identified the usefulness of student learning outcomes and
is currently in the process of developing student learning outcomes for
PME and procedures to include them in the accreditation process.

8 Council for Higher Education Accreditation, Statement of Mutual
Responsibilities for Student Learning Outcomes: Accreditation,
Institutions, and Programs

(Washington, D.C.: Sept. 2003).

9 See GAO-04-546G.

Our recently published report on distance education states that there is
increased interest in using outcomes more extensively as a means of
ensuring quality in all forms of education, including nonresident
education.10 The Council for Higher Education Accreditation has issued
guidelines on nonresident education and campus-based programs that call
for greater attention to student learning outcomes, and the
congressionally appointed Web-based Education Commission11 has also called
for greater attention to student outcomes. The Commission said that a
primary concern related to program accreditation is that "quality
assurance has too often measured educational inputs (e.g., number of books
in the library, etc.) rather than student outcomes."

Private-sector educational institutions are just beginning to emphasize
the evaluation of learning outcomes as a viable measure of program
effectiveness. For example, the University of Maryland University College,
a school with a comparably large distance education program and which
serves a large number of military personnel, is piloting a project to
identify and measure learning outcomes in five general areas-writing
efficiency and oral communication, technology fluency, information
literacy, quantitative literacy, and scientific literacy. The university
will use knowledge captured by its distance education database to serve as
a basis for this determination.

Accrediting agencies and our recent report on training and development
program assessments are also emphasizing the evaluation of learning
outcomes as a measure of program effectiveness. Some of the regional
agencies that accredit programs at the senior-and intermediate-level PME
schools generally recognize the importance of student learning outcomes
and have instituted practices that reflect some aspects of a systematic,
outcome-based approach called for in GAO-04-279.12 However, these agencies
vary in the extent to which standards and policies address student

10 U.S. General Accounting Office, Distance Education: Improved Data on
Program Costs and Guidelines on Quality Assessment Needed to Inform
Federal Policy, GAO-04-279 (Washington, D.C.: Feb. 26, 2004).

11 The Congress established the Web-based Education Commission to prepare
a report to the President and the Congress that contains recommendations
for legislation and administrative actions, including those pertaining to
the appropriate federal role in determining the quality of educational
software products. Members of the Commission included senators,
representatives, and leaders from postsecondary institutions.

12 See GAO-04-279.

learning outcomes for distance education. Our training and development
assessment guide states that agencies need credible information on how
training and development programs affect organizational performance, and
that decision makers will likely want to compare the performance of these
programs with that of other programs. Furthermore, programs lacking
outcome metrics will be unable to demonstrate how they contribute to
results.

We surveyed nonresident PME current students and graduates to obtain their
perspectives on the achievement of PME learning objectives and PME's
impact on their career objectives. (See appendix III for presentation of
survey results.) Because we only surveyed nonresident students, we could
not compare the results with those of resident students. However, we
believe the data can be useful for DOD to consider in its continuing study
of program effectiveness.

ADL Can Be Used to Capture Valuable Measurement Data

ADL has a unique ability to capture, retain, store, and document
interactions in an online environment, which provides the opportunity to
demonstrate student skill improvements, and thus to customize performance
metrics. Since work is done on a computer, various data points are
automatically collected as a student works, including the time spent,
specific pages of the text visited, use of online help, and communication
with others. University of Maryland University College officials pointed
out ADL's unique ability when compared with other delivery methods to
retain, capture, store, and document baseline data that can be used as the
basis for performance metrics. These officials said they would use such
data in designing performance measures for learning outcomes. However, we
found no evidence to indicate that DOD is using this ability. DOD may be
missing an opportunity to enhance its ability to measure effectiveness.

ADL Conversion Varied by School and by Service Based on Subjective
Assessments of Content Suitability

The processes for converting PME courses to ADL varied by school and by
military service, and they feature a mixture of in-house and contractor
approaches. PME schools generally focus their ADL applications on
nonresident programs to improve their efficiency and effectiveness. In
most cases, conversion decisions were made in collaboration with school
academic boards. PME schools did not identify any systematic criteria as
the basis for their decisions as to which courses or curricula to convert
to ADL. They subjectively focused ADL conversion on the suitability of

content for Web-based applications. Curriculum conversions were made
because of a DOD-wide need (1) to improve access to a diverse officer
corps and (2) to increase the efficiency of educational delivery. Since
nonmilitary educational institutions also lack systematic criteria for
converting courses or curricula to ADL for nonresident education, DOD's
approaches are in fact consistent with mainstream practice, and in some
cases, compare favorably with best practices in nonmilitary education.

DOD Processes and Criteria for ADL Conversion Varied

The processes for converting PME courses to ADL varied by school and by
military service, and they feature a mixture of in-house and contractor
approaches. However, the conversions were focused on the schools' entire
nonresident programs. USAWC's and ACSC's ADL applications were developed
and managed by in-house staff and faculty. USAWC and ACSC used staff
consisting of instructional designers and courseware developers
interacting with respective faculty to develop courses. NWC's ADL
application combined the use of contractor and in-house support.
Contractor staff created Web-based applications for two of the three
courses in NWC's curriculum. NWC officials learned enough from contractor
efforts to create a Web-based application for the remaining course with
in-house staff. In all cases, the ADL applications were applied to affect
the entire nonresident curriculum and, in most cases, were preceded by
reviews and final decisions from the schools' academic boards.

The PME schools did not identify any systematic criteria that inform their
selection of course for conversion to ADL. Rather, they made subjective
decisions as to the appropriate parts of the curriculum that should be
delivered online based on content suitability. While USAWC's application
is delivered mostly through the Internet, print media delivers a portion
of the course content as well. USAWC's application also includes two
2-week resident components in which students are brought together to
achieve learning objectives best suited to resident instruction. These
objectives include verbal communication, interaction in live settings,
interpersonal skills used in direct relationships, and other skills that
are important components of the resident experience. USAWC's application
also uses asynchronous "threaded discussions," in which faculty members
initiate online discussions with students on various academic topics.
NWC's and ACSC's applications, which do not include resident components,
blend content delivery using print media, CD-ROM, and the Internet. In
NWC's application, print media is used for material that is mostly text
and requires limited interactive capabilities; CD-ROMs are delivered to
students for

material that is not routinely updated; and students are assigned to
cohort teams that allow online interactive opportunities and group
discussions. In ACSC's application, almost all nonresident materials are
provided to students on CD-ROMs as well as on the Internet to allow as
much flexibility as possible to complete nonresident courses.

Generally, PME school officials stated that ADL conversions were made
because of nonresident PME's need (1) to respond to multiple learning
styles in a diverse officer corps, (2) to increase the efficiency of
educational delivery, and (3) to improve the quality of the educational
offering. Additionally, NWC saw ADL as a means of potentially affecting
retention and increasing enrollment. USAWC saw ADL as a means of
responding to student demands for a more efficient and relevant
educational experience. ACSC saw ADL as an improved means for delivering
course material to increasing numbers of deployed officers.

Nonmilitary ADL Conversion Decisions Were Similar

In nonmilitary applications of ADL, we observed processes and criteria for
conversion decisions that were similar to DOD's. Course conversions
followed analogous processes and criteria decisions, driven by factors
such as interest and student enrollment that were not systematic.
University of Maryland University College officials stated that their
conversion process includes a dedicated staff of instructional designers
and subject matter experts (usually faculty) who produce course conversion
to distance learning content within an established framework to ensure
maintenance of standards. Their criteria for conversion focus on
high-student demand and high levels of interest and on course work that
required less "hands-on" training, such as business and information
technology courses. Further research of private-sector practices supports
the observation that the lack of systematic criteria is consistent with
mainstream practice in ADL adoption for nonresident education.

DOD's approaches for course conversion are thus consistent with mainstream
practice, and in some cases, compare favorably with the best practices in
nonmilitary education. For example, NWC's ADL application received the
Crystal Award in 2002 from the Association for Educational Communications
and Technology based on "innovative and creative use of the medium,
instructional value and relevance, soundness of instructional strategy,
quality of production, and evidence of successful outcomes." As of June
2004, USAWC's nonresident education program is fully accredited by the
Middle States Commission of Higher Education for the awarding of Master's
of Strategic Studies Degrees. USAWC is the first military

institution to achieve degree-granting authority for its nonresident
ADL-based program.

Cultural, Technological, and Resource Barriers and Challenges Affect ADL
Implementation in PME Programs

PME schools identified a number of cultural, technological, and resource
challenges that affect ADL implementation and may affect future
maintenance or expansion of ADL efforts. Cultural issues such as
appropriate extent of ADL incorporation, general perceptions about
nonresident education, and limited ADL research in military education
affect the degree of ADL implementation. Technological trade-offs and
nonresident program resourcing also affect continued ADL efforts.

Cultural	PME officials question the appropriate extent to which ADL should
be used in nonresident education and how closely it can, or should, enable
nonresident education to approximate resident education. It is generally
recognized that resident programs are better in providing acculturation,13
interactive skills, and simulations that are critical for professional
development of officers, and that there are challenges in providing such
aspects in nonresident education. But some observers believe that
nonresident education should not be compared to resident education and
that nonresident education represents a vital broadening experience in its
own right. In addition, there are indications that an ADL approach could
significantly enrich nonresident content by excluding teaching methods
that do not work in residence, allowing students the flexibility to focus
on material that requires further study without class disruption, and
serving as the basis for applications that can be used to upgrade teaching
methods in resident programs.

13 Acculturation is defined as a developmental activity that involves the
adoption of customs, protocols, and doctrine. The acculturation process is
designed to prepare officers for shared leadership positions while
reinforcing total force partnerships.

ADL implementation could also be affected by certain negative perceptions
concerning nonresident education that are held by students, and in some
cases, reflected in policy. Our survey of nonresident PME current students
and recent graduates indicated that about 49 percent of current students
and 48 percent of graduates believe they are not as well prepared as are
their resident student counterparts, regardless of nonresident delivery
method.14 While not universal between the services, we observed instances
of military education policies that reinforce the perception that
nonresident education is not as desirable as resident education. The Air
Force's PME Instruction AFI36-2301 states that "ideally, all officers will
attend PME in residence," and that limited resources restrict resident
attendance to the "best qualified." Furthermore, "completing nonresident
PME programs will not affect eligibility for resident PME programs."
Indeed, we were told of instances where officers who after completing the
nonresident PME program subsequently enrolled in the corresponding
senior-or intermediate-level course in residence.

The extent of ADL implementation in nonresident education is affected by
the role that PME completion plays in promotional consideration. Programs
maintained to foster promotional consideration-that is,
"personnel-oriented"-might not be compatible with programs emphasizing the
learning outcomes brought about by ADL-that is, "education-oriented." Our
survey shows that promotional considerations, rather than learning
outcomes, are the focus for students in nonresident education. An
estimated 73 percent of current students and 84 percent of recent
graduates listed as their predominant reason for participating in
nonresident PME a desire to improve their promotional chances or to meet
promotional requirements. In addition, of an estimated 22 percent of PME
graduates who were promoted to a higher rank after PME completion, an
estimated 88 percent stated that PME contributed to a "great" or "very
great extent" in their promotions.15 But ADL adoption goals should focus
more on learning outcomes than on simply "checking the boxes" for
promotional opportunity enhancement.

PME officials state that there are concerns that ADL advantages could be
oversold to the point that ADL may be used to supersede resident programs

14 The percentages reported here are based on a sample of current students
and graduates and are estimates. All percentage estimates from the survey
reported have margins of error of plus or minus 10 percentage points or
less, unless otherwise noted.

15 The confidence interval for this figure was +9 percent and -17 percent.

and shift the burden of PME administration. DOD officials, already viewing
ADL delivery methods as attractive from a cost savings perspective, are
desirous to expand such programs, even at the expense of resident
programs. However, PME officials believe that ADL expansion should be
considered only after completely understanding its impact on military
operations and recognizing the resident program's role as the basis for a
nonresident program. In addition, PME officials noted that ADL could be
used as a means of shifting the burden from the school to the student and
the student's commands without providing appropriate command support,
compensation, or resources.

While ADL research exists for military training courses, there is only
limited research on ADL's impact on military education, especially in
terms of its impact on learning that requires interactive elements. A DOD
official stated that it is well-known in studies that distance learning
(usually teleconferencing) instruction offers no significant differences
as compared with classroom instruction. However, officials believe that
more work should be done to collect information that ADL improves learning
in military education and that these studies should focus on collaborative
learning environments and the extent of their translation. In addition,
further efforts should look at commercial education studies (undergraduate
and graduate education) and its transfer to military education.

Technological	PME school officials have stated that decisions are needed
on trade-offs between increased demands for student access (more servers,
more bandwidth, or reduced firewalls) and the maintenance for network
security. Such decisions are complicated by what is viewed as a lack of
standardization in DOD and within individual services on security
requirements.

In our nonresident survey, approximately 19 percent of current students
and 16 percent of recent graduates experienced computer/Internet related
problems affecting their PME experience. Some identified problems included
servers, bandwidth issues, and security firewalls. PME schools considered
using ".edu" domains to make courseware more available to students because
of the difficulty of interacting ".mil" domains with systems outside of
military organizations. However, such moves would be expensive and would
conflict with increasing requirements to reduce the number of servers and
personnel needed to operate these systems. Some reported problems involved
limited bandwidth issues. While such problems

can be overcome, they require time and money to resolve. Firewalls
maintained for security purposes have caused schools to limit library
access to nonresident students due to perceived security threats.

Resources and Funding	Most ADL efforts at PME schools were fielded
independently with limited budgets and staffing. USAWC's and ACSC's ADL
applications were developed and supported with in-house staff responsible
for managing resident and nonresident programs. These applications were
fielded independently within the services. PME officials stated that PME
schools' ability to fund ADL applications is limited due to DOD's priority
to focus more on its training and operational activities. An emerging
funding issue involves the use of copyrighted material in ADL
applications. Increasing costs in using copyrighted material for course
work could result in limiting course flexibility and methodologies.

New technologies, such as ADL, create new requirements for faculty
personnel with higher technical expertise and more equipment and structure
than traditional programs. Faculty members must be skilled to perform in
online and classroom settings. PME schools are beginning to observe they
must offer faculty opportunities to teach courses in multiple medias or
risk losing qualified faculty to competitors.

Conclusions	Although PME schools receive oversight from a number of
organizations, we observed that neither the schools nor the oversight
agencies had focused on (1) establishing specific performance
effectiveness goals for ADL implementation or (2) measuring learning
outcomes as a means of evaluating program effectiveness. The Joint Staff's
accreditation reports on nonresident education do not detail performance
goals for any particular delivery method. The military services, which
have primary responsibility for PME oversight, view the accreditation
process provided by the Joint Staff as the primary means of ensuring the
effectiveness of nonresident education. DOD is not alone in this
problem-the lack of metrics for performance effectiveness and learning
outcomes is pervasive throughout all educational institutions. Our prior
efforts indicate that most public and private institutions lack a
framework with which to assess implementation of training and development
efforts. However, agencies need clear information on how training and
development efforts affect organizational performance, and decision makers
will likely want to compare the performance of these programs with that of
other programs. Without clear

goals and an effective process for evaluating the results of ADL
application,
DOD cannot ensure that ADL is achieving appropriate return on
investment, student retention, student access, and other goals in
comparison with prior efforts. Furthermore, programs lacking outcome
metrics will be unable to demonstrate how they contribute to results.
Moreover, by not capturing and using student data that are uniquely
available through ADL techniques, DOD is missing the opportunity to
develop the basis for effectiveness metrics and knowledge about
learning outcomes.

Recommendations for Executive Action

We recommend that the Secretary of Defense direct the Under Secretary of
Defense for Personnel and Readiness, in concert with the Joint Staff,
service headquarters, and the PME schools, to take the following two
actions:

o 	promote the development of specific performance effectiveness goals for
ADL and

o 	promote the use of ADL technologies to capture data to provide
knowledge about learning outcomes.

Agency Comments and Our Evaluation

DOD partially concurred with our first recommendation and fully concurred
with the second. DOD supports the use of specific effectiveness goals for
PME, but believes such goals are not appropriate for any specific delivery
method. While we acknowledge DOD's concerns with focusing on a specific
delivery method, we believe that ADL is unlike other means of delivery
because of its potential to modernize the educational experience and
because its use is rapidly expanding in other areas of PME. We believe it
would be worthwhile for DOD to know specifically how well ADL performs,
especially in comparison with other delivery methods, in order to better
understand its appropriate use for PME. DOD concurred with our second
recommendation and stated that current accreditation practices are already
promoting the data collection capabilities of ADL technologies for
assessing multiple delivery methods. DOD's comments are included in this
report as appendix V. DOD also provided technical changes, which we
incorporated as appropriate.

We are sending copies of this report to congressional members as
appropriate. We will also send copies to the Secretary of Defense; the
Secretaries of the Air Force, Army, and Navy; the Commandant of the Marine
Corps; and the Chairman of the Joint Chiefs of Staff. We will make copies
available to others on request. In addition, this report will be available
at no charge on the GAO Web site at http:/www.gao.gov.

If you or your staff have any questions, please call me on (757) 552-8100
or Clifton Spruill, Assistant Director, on (202) 512-4531. Major
contributors to this report were Arnett Sanders, Maewanda Michael-Jackson,
Jean Orland, David Dornisch, Terry Richardson, and Cheryl Weissman.

Sincerely yours,

Neal P. Curtin Director, Defense Capabilities and Management

Appendix I

Scope and Methodology

We reviewed Department of Defense's (DOD) implementation of advanced
distributed learning (ADL) in senior-and intermediate-level professional
military education (PME) to determine processes and criteria used for
converting courses, metrics to assess ADL effectiveness and its
fulfillment of learning objectives, and barriers and challenges in ADL
implementation. We collected, reviewed, and analyzed relevant program
information and conducted interviews with DOD officials responsible for
ADL implementation in PME programs and oversight responsibilities. We
initially obtained data from the Principal Deputy Under Secretary of
Defense for Personnel and Readiness to identify PME programs with ADL
applications. A review of the data indicated that there were three
existing programs. We identified, interviewed, and obtained data from
officials from PME schools with ADL applications. Those schools were

o  U.S. Army War College, Carlisle, Pennsylvania;

o  Naval War College, Newport, Rhode Island; and

o  Air Command and Staff College, Montgomery, Alabama.

We also interviewed and obtained data from officials at the Joint Forces
Staff College in Norfolk, Virginia, on their pending ADL application.

We also interviewed and obtained data from agencies within DOD responsible
for oversight of PME activities. Those agencies included

o 	The Joint Chiefs of Staff's Operational Plans and Joint Force
Development Directorate (J-7), Joint Doctrine, Education, and Training
Division, Joint Education Branch, Arlington, Virginia;

o 	The Office of the Under Secretary of Defense for Personnel and
Readiness, Deputy to the Under Secretary for Readiness, Office of
Readiness and Training Policy and Programs, Arlington, Virginia;

o 	The Office of the Under Secretary of Defense for Personnel and
Readiness, Deputy to the Under Secretary for Military Personnel Policy,
Arlington, Virginia;

o 	Department of the Army, Office of the Deputy Chief of Staff, Operations
and Plans, Arlington, Virginia;

Appendix I Scope and Methodology

o 	Department of the Navy, Office of the Chief of Naval Operations,
Personal Development and Accessions Division, Washington, D.C.;

o 	Department of the Air Force, Office of the Deputy Chief of Staff for
Personnel, Learning, and Force Development, Arlington, Virginia;

o 	U.S. Marine Corps Combat Development Center, Training and Education
Command, Quantico, Virginia;

o  U.S. Army War College Board of Visitors, Carlisle, Pennsylvania;

o  Naval War College Board of Advisors, Newport, Rhode Island; and

o  Air University Board of Visitors, Montgomery, Alabama.

To determine sufficient metrics to assess ADL effectiveness, we provided
PME program officials with a detailed list of questions that included
those relating to effectiveness and learning objectives. We reviewed
written responses, if provided, and followed up with site visits and
correspondence with oversight agencies to clarify or obtain additional
information if necessary. We also obtained and analyzed data from a survey
of nonresident PME current students and graduates, which included
questions designed to obtain perceptions on program effectiveness. Details
of the survey methodology are presented in appendix II.

To determine processes and criteria DOD used for ADL conversion, we
provided PME program officials with a detailed list of questions that
included those relating to process and criteria decisions. We reviewed
written responses, if provided, and followed up with site visits to
clarify or obtain additional information if necessary. To determine
whether criteria were consistent with those of other institutions
performing distance education, we researched prior literature on this
topic and conducted a site visit to the University of Maryland University
College in Adelphi, Maryland. The school was identified in our prior
reports on distance education as having a program with a large distance
education population, as well as educating a significant number of
military officers. We also contacted and received data from the Sloan
Consortium, an organization designed to encourage collaborative sharing of
knowledge and effective practices to improve online education.

To determine barriers and challenges to ADL implementation, we provided
PME program officials with a detailed list of questions that included
those

Appendix I Scope and Methodology

relating to barriers and challenges. We reviewed written responses, if
provided, and followed up with site visits and correspondence with DOD
oversight agencies to clarify or obtain additional information if
necessary. We also obtained and analyzed data from a survey of nonresident
PME current students and graduates, which included questions designed to
obtain perceptions on barriers and challenges in completing PME courses.
Details of the survey methodology are presented in appendix II.

Appendix II

Methodology for Our Survey of Nonresident PME Students and Graduates

To obtain military officers' perspectives on nonresident PME in terms of
impact on careers, achievement of learning objectives, and obstacles and
challenges, we conducted a statistically representative survey of current
nonresident senior- and intermediate-level PME students and graduates of
these schools from April 1999 to March 2003, roughly the period coinciding
with initial ADL implementation at several senior-and intermediate-level
schools. We present the survey questions and response results in appendix
III.

The Study Population	The population for the nonresident PME survey
consisted of current students and graduates who fulfilled the following
criteria:

1.

2.

3.

4.

Respondents were identified as enrolled in a senior-and intermediate-level
nonresident PME program of study from April 1999 to March 2003. We decided
on this time period to ensure that our respondents would have begun their
programs after Web-based PME had been clearly established as a mode of
instruction or have been in PME long enough to have meaningful responses
to our questions.

Respondents participated in a senior-and intermediate-level nonresident
PME program of study, as opposed to individual PME courses undertaken via
continuing education programs.

Respondents are currently active in the U.S. military services or
reserves, excluding U.S. civilians; U.S. Coast Guard members; and
international members, either military or civilian.

Respondents participated (i.e., currently enrolled or graduated) in a
nonresident PME program in one of the six senior-and intermediate-level
PME schools: U.S. Army War College, Army Command and General Staff
College, Air War College, Air Command and Staff College, Naval War
College, and Marine Corps College of Continuing Education.

The survey asked respondents about PME's impact on furthering career
objectives, their achievement of learning objectives, and obstacles and
challenges of the programs. Specific questions concerned students'
satisfaction with their overall program, various modes of program
delivery,

                                  Appendix II
                   Methodology for Our Survey of Nonresident
                           PME Students and Graduates

and with technologies used; students' time and duty management concerns;
and reasons for participation in nonresident PME.

Developing the Survey	To develop areas of inquiry for the survey, we
reviewed our previous work related to distance education and PME. We
reviewed a series of survey questionnaires developed by us and by DOD. We
used these sources and our own analysis to develop an initial set of
questions. We further developed and refined the questionnaire by obtaining
and incorporating written comments regarding the initial questions from
administrators and other representatives of the senior- and
intermediate-level PME schools.

In addition to an internal expert technical review by our Survey
Coordination Group, we pretested the survey with five individuals whose
personal characteristics corresponded to our eligibility criteria. We
identified pretest subjects through our contacts who were current military
personnel or who knew military personnel and our PME points of contact.

The Sample Design and Administration

We conducted the survey between January and April of 2004 on a random
sample of 437 current students and graduates of nonresident PME programs
using a self-administered Web-based questionnaire. We drew the names of
our respondents from an overall population data set we constructed that
combined separate data sets received from each of the senior-and
intermediate-level PME schools. For each data set, we requested the
officer's name, school attended, month and year of initial enrollment,
component (defined as either active duty or reservist), and mode of PME
delivery. We requested e-mail addresses and, if needed, phone numbers from
potential respondents after they were drawn from the population data sets.
We stratified our sample by component in order to better understand any
differences between these components.

We activated the survey Web site and informed our sample respondents of
the Web site, their logon name, and passwords by e-mail on January 30,
2004. To maximize the response rate, we sent five subsequent follow-up
e-mail reminders to nonrespondents in February and March 2004. At the time
of the third mailing, we also telephoned many of the nonrespondents to
encourage them to complete the survey. We ended data collection activities
on April 30, 2004.

                                  Appendix II
                   Methodology for Our Survey of Nonresident
                           PME Students and Graduates

Of the 437 selectees included in our sample, we received 273 useable
questionnaires. We defined useable as respondents who completed the survey
and were not identified as out-of-scope. During the survey, we deemed 67
of the 437 to be outside the scope of our survey after determining that
they did not meet at least one of our eligibility criteria. Disregarding
these 67 responses, our overall response rate was 73.8 percent (273/370).
Table 2 shows the final disposition of the sample (the 437 respondent
accounts activated) by strata.

                         Table 2: Disposition of Sample

                                                                    Number of 
                Stratum  Sample      Useable Out of scope      nonrespondents 
            Active Duty       219        136              31 
           Reserve Duty       218        137              36 

Source: GAO.

The estimates we make in this report are the result of weighting the
survey responses to account for effective sampling rates in each stratum.
These weights reflect both the initial sampling rate and the response rate
for each stratum. As with many surveys, our estimation method assumes that
nonrespondents would have answered like the respondents.

Sampling Error	For the estimates we present in this report, we are 95
percent confident that the results we would have obtained had we studied
the entire population are within +/-10 or fewer percentage points of our
estimates (unless otherwise noted). Because we surveyed a sample of recent
nonresident PME students, our results are estimates of student and
graduate characteristics and thus are subject to sampling errors. Our
confidence in the precision of the results from this sample is expressed
in 95 percent confidence intervals, which are expected to include the
actual results for 95 percent of the samples of this type. We calculated
confidence intervals for our results using methods appropriate for a
stratified probability sample.

                                  Appendix II
                   Methodology for Our Survey of Nonresident
                           PME Students and Graduates

Nonsampling Error and Data Quality

We conducted in-depth pretesting of the questionnaire to minimize
measurement error. However, the practical difficulties in conducting
surveys of this type may introduce other types of errors, commonly known
as nonsampling errors. For example, measurement errors can be introduced
if (1) respondents have difficulty interpreting a particular question, (2)
respondents have access to different amounts of information in answering a
question, or (3) errors in data processing occur. We took extensive steps
to minimize such errors in developing the questionnaire, collecting the
data, and editing and analyzing the information. The Web-based data
management system we used provides a systematized process for processing,
transferring, and analyzing data that also protects against nonsampling
errors. In addition, we performed tests to ensure the reliability and
usefulness of the data provided by the PME schools. These included
computer analyses to identify inconsistencies both within and across the
data sets and other errors in the data sets from which we developed our
overall sampling frame. We also interviewed agency officials knowledgeable
about the data. We determined that the data were sufficiently reliable for
the purposes of this report.

Appendix III

Survey Responses

Introduction Welcome DoD Distance Learning Student or Graduate.

The U.S. General Accounting Office (GAO) - an agency of the U.S. Congress
has been requested to review various aspects of nonresident professional
military education (PME). Part of that effort is to evaluate whether the
appropriate decisions are being made in regards to nonresident education
for intermediate and senior-level military officers. As part of this
effort, we are assessing opinions of nonresident PME graduates and current
students on (1) the achievement of PME learning objectives, (2) obstacles
and challenges in completing PME, and (3) PME's impact on furthering
career objectives.

The survey should take approximately 10 minutes to complete.

Participation in this survey is voluntary but encouraged. Your responses
will be confidential and the results of the survey will be reported in
aggregate form only.

Before choosing an answer, please read the full question and all response
choices carefully.

Thank you in advance for your participation.

Frame of Reference	Please consider only the following when answering the
questions on this survey:

1.	Nonresident Professional Military Education programs of study that you
have participated in, as opposed to individual PME courses undertaken via
continuing education programs.

AND

2.	Nonresident Professional Military Education programs of study that you
began in April 1999 or after.

Our survey of nonresident Professional Military Education students was
divided into two main parts, one with questions appropriate for current
students and one with similar questions worded slightly differently for
graduates. There are also questions on demographics to which both current
students and graduates responded. Survey questions and responses for

                         Appendix III Survey Responses

graduates are indicated in italics and those for current students are in
plain text.

The information provided here represents weighted data. For information on
weighting, see appendix II.

Except where noted by the following, all percentage estimates have 95%
confidence intervals within +/-10 percentage points:

aConfidence interval exceeds +10 percentage points
bConfidence interval exceeds +25 percentage points and estimate is
unreliable

Questions 1 and 31 are intentionally omitted because they contained
instructions telling respondents which questions to answer.

Survey of Nonresident Professional Military Education Graduates and
Current Students

Q2. The name of program in which currently enrolled:

Q32. From which school did you graduate?

                                      Army                        
             Air Command       Command and  Army War              
               and Staff   Air War General   College Marine Corps 
                                     Staff                        
                 College   College College  Distance   College of       Naval 
                                                                      College 
             Nonresident Nonresident       Education   Continuing of Distance 
                         Nonresident                              
                 Program  Program Program    Program    Education   Education 
               (percent) (percent)         (percent)    (percent)   (percent) 
                         (percent)                                
    Current           30             25 31         1           10           2 
Students                                                       
Graduates          40             27 27         2            1           3 

Q3. In what month and year did you begin your PME program?

Q33. In what month and year did you begin your PME program (if you
graduated from more than one program, answer for the most recent one)?

                       1999      2000      2001      2002      2003     Other 
                  (percent) (percent) (percent) (percent) (percent) (percent) 
      Current             1         3        14        30        47         5 
      Students                                                      
     Graduates           15        26        34        21         5         0 

                         Appendix III Survey Responses

Q4. What mode of instruction have you used most often in your nonresident
                         Professional Military program?

    Q34. What mode of instruction did you use most often in your nonresident
                         Professional Military program?

Seminar or Classroom Web-Based Paper-Based Instruction Correspondence
Correspondence

(percent) (percent) (percent)

Current Students 24 25 51

Graduates 42 18 40

Q5. In what month and year do you expect to complete your PME studies
program?

Q35. In what month and year did you complete your Professional Military
Education program?

                       2003      2004      2005      2006      2007     Other 
                  (percent) (percent) (percent) (percent) (percent) (percent) 
      Current             1        68        21         4         0         6 
      Students                                                      
                       1999      2000      2001      2002      2003      2004 
                  (percent) (percent) (percent) (percent) (percent) (percent) 
     Graduates            1        10        18        31        39         1 

Q6. In a typical week, approximately how many hours did you spend in
Professional Military Education-related activities, including preparation,
study, working on-line, and time in class?

Q36. In a typical week, approximately how many hours did you spend in
Professional Military Education-related activities, including preparation,
study, working on-line, and time in class?

Mean Current Students 5.8 Graduates 8.4

Q7. Does the military or your employer afford you time during your
work-week for Professional Military Education?

Q37. Did the military or your employer afford you time during your
work-week for Professional Military Education?

                             Yes         No 
                      (percent)   (percent) 
Current Students           23         77 
Graduates                  42         58 

Q8. How many hours do you work in paid employment in a typical work-week
(outside of Professional Military Education-related activities)?

Q38. During the period of time that you were completing your Professional
Military Education program, how many hours did you work in paid employment
in a typical work-week (outside of Professional Military Education-related
activities)?

Mean

                      Current Students 52.0 Graduates 47.5

                         Appendix III Survey Responses

Q9. Listed below are various reasons why someone would participate in a
nonresident PME program. What is your greatest reason for participating in
a nonresident Professional Military Education program?

Q39. Listed below are various reasons why someone would participate in a
nonresident PME program. What was your greatest reason for participating
in a nonresident Professional Military Education program

Current Students Graduates (percent) (percent)

To develop professionally                                      20   13 
To gain access to better assignments                            1    0 
To gain knowledge in my field or in fields of interest to me    2    0 
To improve my chances of, or meet the requirements for,            
promotion                                                      73   84 
To network with other officers                                  1    0 
To obtain college credit                                        0    0 
Other                                                           4    3 

Q10. To this point in time, how satisfied or dissatisfied are you with
your Professional Military Education program?

Q40. Overall, how satisfied or dissatisfied are you with the Professional
Military Education program in which you graduated?

                                            Neither              
                            Somewhat  satisfied nor   Somewhat           Very 
                    Very    satisfied dissatisfied  dissatisfied dissatisfied 
                  satisfied                                      
                  (percent) (percent)     (percent)    (percent)    (percent) 
Current               16        35            21           21            8 
Students                                                      
Graduates             20        45            15           15            5 

Q11. To what extent, if any, has your Professional Military Education
program benefited your military career to this point in time?

Q41. To what extent, if any, has graduation from your Professional
Military Education program benefited your military career to this point in
time?

                    Very great              Moderate                
                        extent Great extent    extent Little extent No extent 
                     (percent)  (percent)   (percent)   (percent)   (percent) 
Current Students          1           21        42            20        16 
Graduates                15           21        30            22        12 

                         Appendix III Survey Responses

Q12. To what extent, if any, do you believe the knowledge you are
acquiring in your Professional Military Education program will improve
your effectiveness in future assignments?

Q42. To what extent, if any, do you believe the knowledge you acquired in
your Professional Military Education program has improved your
effectiveness in job assignments?

                    Very great              Moderate                
                        extent Great extent    extent Little extent No extent 
                     (percent)  (percent)   (percent)   (percent)   (percent) 
Current Students          5           22        42            25         6 
Graduates                 9           16        39            24        12 

No Parallel Question for Current Students

Q43. Have you been promoted to a higher rank since you completed your
Professional Military Education program?

Yes (percent)

No (percent)

                                Graduates 78 22

No Parallel Question for Current Students

Q44. To what extent, if any, do you believe that completion of your
Professional Military Education program contributed to your promotion?

                Very great                Moderate                 
                    extent Great extent      extent Little extent   No extent 
                 (percent)   (percent)   (percent)    (percent)     (percent) 
Graduates           53a           34a         3a             9a          0 

Q13. To what extent, if any, does your Professional Military Education
program enable you to acquire the knowledge you are expected to obtain?

Q45. To what extent, if any, did your Professional Military Education
program enable you to acquire the knowledge you were expected to obtain?

                    Very great              Moderate                
                        extent Great extent    extent Little extent No extent 
                     (percent)  (percent)   (percent)   (percent)   (percent) 
Current Students          5           25        43            21         6 
Graduates                 9           28        40            19         4 

Q14. Was/is any part of your Professional Military Education program taken
through seminar/classroom-based instruction?

Q46. Was any part of your Professional Military Education program taken
through seminar/classroom-based instruction?

                              No        Yes 
                      (percent)   (percent) 
Current Students           67         33 
Graduates                  50         50 

                         Appendix III Survey Responses

  Q15. Overall, how would you rate the quality of this seminar/classroom-based
                                   learning?

  Q47. Overall, how would you rate the quality of this seminar/classroom-based
                                   learning?

                       Excellent  Very good     Good          Fair       Poor 
                       (percent)  (percent)  (percent)  (percent)   (percent) 
Current Students            8a        66a        11a        13a         3a 
Graduates                  18a        35a        31a         14          3 

Q16. Was/is any part of your Professional Military Education program taken
                      through paper-based correspondence?

Q48. Was any part of your Professional Military Education program taken through
                          paper-based correspondence?

No (percent)

Yes (percent)

  Current Students 36 64 Graduates 40 60 Q17. Overall, how would you rate the
              quality of this paper-based correspondence learning?

Q49. Overall, how would you rate the quality of this paper-based correspondence
                                   learning?

                       Excellent  Very good     Good          Fair       Poor 
                       (percent)  (percent)  (percent)  (percent)   (percent) 
Current Students             3        27a        40a        26a          4 
Graduates                    6         31         33         20         10 

Q18. Was/is any part of your Professional Military Education program taken
                    through the World-Wide Web or Internet?)

Q50. Was any part of your Professional Military Education program taken through
                        the World-Wide Web or Internet?

No (percent)

Yes (percent)

  Current Students 64 36 Graduates 60 40 Q19. Overall, how would you rate the
                  quality of this web/Internet-based learning?

    Q51. Overall, how would you rate the quality of this web/Internet-based
                                   learning?

                       Excellent  Very good     Good          Fair       Poor 
                       (percent)  (percent)  (percent)  (percent)   (percent) 
Current Students           17a        22a        40a        15a         5a 
Graduates                   8a        39a        41a        10a          2 

                         Appendix III Survey Responses

Q20. How easy or difficult has it been for you to use web/Internet-based
learning?

Q52. How easy or difficult was it for you to use web/Internet-based
learning?

                             Somewhat  Neither easy  Somewhat  
                   Very easy      easy nor difficult difficult Very difficult 
                   (percent) (percent)   (percent)   (percent)      (percent) 
Current               34a       21a           32a        8a             5a 
Students                                                    
Graduates             40a       37a           10a       12a              0 

Q21. How easy or difficult have you found interaction with faculty during
your web/Internet-based learning?

Q53. How easy or difficult did you find interaction with faculty during
your web/Internet -based learning?

                             Somewhat  Neither easy  Somewhat  
                   Very easy      easy nor difficult difficult Very difficult 
                   (percent) (percent)   (percent)   (percent)      (percent) 
Current               26a       11a           35a       11a            16a 
Students                                                    
Graduates             18a       48a           29a        5a              0 

Q22. How easy or difficult have you found interaction with other students
during your web/Internet-based learning?

Q54. How easy or difficult did you find interaction with other students
during your web/Internet-based learning?

                             Somewhat  Neither easy  Somewhat  
                   Very easy      easy nor difficult difficult Very difficult 
                   (percent) (percent)   (percent)   (percent)      (percent) 
Current               16a       31a             b       16a            11a 
Students                                                    
Graduates             15a       41a           26a       15a             4a 

Q23. How well does the courseware/course software work on the computer
equipment to which you have access for taking web/Internetbased learning?

Q55. How well did the courseware/course software work on the computer
equipment to which you had access for taking web/Internetbased learning?

                       Excellent  Very good     Good          Fair       Poor 
                       (percent)  (percent)  (percent)  (percent)   (percent) 
Current Students            8a        41a        32a        19a          0 
Graduates                  21a        43a        28a          5          2 

                         Appendix III Survey Responses

Q24. How reliable is your network access for taking web/Internet-based
learning (e.g. ability to connect; to upload and download assignments,
etc).

Q56. How reliable was your network access for taking web/Internet-based
learning (e.g. ability to connect; to upload and download assignments,
etc)?

                                   Somewhat As reliable  Somewhat        Very 
                                            as                     
                    Very reliable  reliable unreliable  unreliable unreliable 
                        (percent) (percent)   (percent) (percent)   (percent) 
Current Students           41a       40a         14a         3a         3a 
Graduates                  52a       45a           2          2          0 

Q25. Compared to resident Professional Military Education students in the
school in which you are enrolled, of the following options, do you believe
you are prepared:

Q57. Compared to resident Professional Military Education program
graduates of your school, of the following options, do you believe you are
prepared:

                     better than  as well as  worse than  
                       resident    resident      resident 
                      students.    students.   students.   Don't know 
                      (percent)    (percent)   (percent)    (percent) 
Current Students             2          27          49          23 
Graduates                    3          30          48          19 

Q26. Overall, what has been the primary challenge, if any, affecting your
Professional Military Education program?

Q58. Overall, what was the primary challenge, if any, affecting your
Professional Military Education program?

Current Students Graduates (percent) (percent)

Computer/Internet-related problems                                   3   0 
Deployment cycle                                                     12  5 
Domestic circumstances                                               12 10 
Maintaining focus                                                    16 12 
Present job duties                                                   45 53 
Not applicable, I am not experiencing & have not experienced any        
challenges                                                              
to this point in time.                                               6  17 
Other                                                                8   3 

Q27. Have you experienced any computer/Internet-related problems affecting
your Professional Military Education program?

Q59. Did you experience any computer/Internet-related problems affecting
your Professional Military Education program?

No Yes (percent) (percent)

                     Current Students 81 19 Graduates 84 16

                         Appendix III Survey Responses

    Q28. What specific computer/Internet-related problems have you incurred?

    Q60. What specific computer/Internet-related problems have you incurred?

Current Students Graduates

Yes Yes (percent) (percent)

a. Bandwidth/ network speed 63a b

b. Inadequate uploading or downloading
ability/lack of high-speed internet
equipment 57a b

c. Inadequate technical support b b

d. Defective/ incompatible equipment 25a b

e. Lack of computer skills 5a b

f. Lack of network availability/access to
internet 52a b

g. Security/Firewall issues 26a b

h. Other b b

Q29. At any point during your Professional Military Education program, have you
                   had to defer/disenroll from your studies?

 Q61. At any point during your Professional Military Education program, did you
                   have to defer/disenroll from your studies?

No (percent)

Yes (percent)

Current Students 66 34 Graduates 86 14 Q30. What was the primary reason you had
                     to defer/disenroll from your studies?

Q62. What was the primary reason you had to defer/disenroll from your
studies?

Open-ended comments not shown here.

Q63. What is the highest degree or level of school that you have
completed?

Current Students Graduates (percent) (percent)

High school or equivalent                      0         0 
1 or more years of college, no degree          0         0 
Associate's degree                             1         0 
Bachelor's degree                             42        25 
Master's degree                               44        61 
Doctoral or professional school degree        10        12 
Other                                          3         2 

                         Appendix III Survey Responses

Q64. In what branch of the military do you serve?

                      Current 
                     Students    Graduates 
                    (percent)    (percent) 
Air Force               54           66 
Army                    33           30 
Marines                 11            1 
Navy                     2            3 

Q65. What duty capacity best describes you during the majority of your
Professional Military Education program?

                         Current 
                      Students    Graduates 
                      (percent)   (percent) 
Non-Active Duty            43         26 
Active Duty                57         74 

Q66. What component best describes you during the majority of your
Professional Military Education program?

                            Current 
                         Students     Graduates 
                         (percent)    (percent) 
Active Component              46          67 
Reserve Component             54          33 

Q67. Are you a member of the National Guard?

                    Current 
                   Students      Graduates 
                  (percent)      (percent) 
Yes                  35a            45a 
No                   65a            55a 

                         Appendix III Survey Responses

Q68. What military occupational category best describes you during the majority
                of your Professional Military Education program?

Current Students Graduates (percent) (percent)

Administrative                             12          9 
Engineering & Maintenance Officers         10         13 
General Officers & Executives               4          7 
Health Care Officers                       18         13 
Intelligence Officers                       6          1 
Scientists & Professionals                  9         10 
Supply & Procurement & Allied                    
Officers                                    7          8 
Tactical Operation Officers                28         31 
Non-Occupational                            0          1 
Not Listed Above/Other                      6          7 

Q69. What was your rank when you began your Professional Military
Education program?

                     Current 
                    Students     Graduates 
                   (percent)     (percent) 
O-2                     1             1 
O-3                    18            18 
O-4                    65            59 
O-5                    13            21 
O-6                     2             1 
Other                   2             0 

Q70. What is your current rank?

                     Current 
                    Students     Graduates 
                   (percent)     (percent) 
O-2                     0             0 
O-3                     4             3 
O-4                    70            59 
O-5                    24            27 
O-6                     3             7 
O-7                     0             1 
Other                   0             3 

                         Appendix III Survey Responses

Q71. If you have any other comments related to your PME education,
training, assignments, distance learning, or any other matters related to
this questionnaire, please note them here.

Open-ended comments not shown here.

Appendix IV

ADL Applications and Additional Features of Nonresident Programs

We observed three current ADL applications at PME senior- and
intermediate-level schools. These schools have geared their ADL efforts to
their nonresident programs. The programs vary from service to service in
terms of enrollment, structure, duration, and credits received for
graduation. In addition, we observed additional features of nonresident
programs that affect the nature of their ADL applications.

U.S. Army War College
The U.S. Army War College (USAWC), the Army's senior-level PME school,
initiated its Web-based nonresident education program in April 1999. The
program went online in an evolutionary process until the spring of 2002,
whereby students received both text and online versions. Since the spring
of 2002, all nonresident students have received their education via a
combination of ADL technology and appropriate text. Nonresident students
are board selected to participate in the program. It is a 2-year Web-based
program that is the only delivery method offered to nonresident students.
The program has a "blended" component, whereby 2 of its 12 courses are
taken in residence at USAWC. Also, distance courses are presented to
students as a group or cohort; that is, students enroll at the beginning
of the nonresident school year and must complete a sequenced load of 5
courses during the first year, followed by an additional 5 courses during
the second year. The resident courses are of 2-week duration and are
conducted at the end of each academic year. The nonresident program is
designed to parallel the resident program, and graduates from both
programs are awarded Master's Degrees in Strategic Studies.

Naval War College
The Naval War College's (NWC) nonresident education programs are
concentrated in its College of Distance Education, its only nonresident
college and one of five colleges under the NWC umbrella. The College of
Distance Education, an intermediate-level PME school, offers several
nonresident options. The fleet seminar program has existed in various
forms at the school since 1974; the Web-enabled correspondence program has
been operating fully since October 2002; and the CD-ROM-based
correspondence program, effective in April 2004, was designed to replace
the phased-out paper-based correspondence course. Nonresident options are
open to all officers and qualified personnel. The Web-based course can be
completed in 18-24 months. While there is no formal resident portion to
this course, students are assigned to cohort teams to facilitate team and
faculty communication. This nonresident course is closely aligned with the
resident course, and graduates are allowed to obtain graduate hour
credits.

                                  Appendix IV
                    ADL Applications and Additional Features
                            of Nonresident Programs

In the case of several seminars of the fleet seminar program, students can
apply for admission to a program of graduate study leading toward a
Master's of Arts Degree in National Security and Strategic Studies.

Air Command and Staff College

The Air Command and Staff College (ACSC), the Air Force's
intermediate-level PME school, implemented its nonresident program in its
present form in September 1999. There are two methods for completing the
nonresident program: by seminar or by correspondence. The ACSC nonresident
program is open to all officers and qualified personnel. The most recent
version of the program consists of six courses organized into two
semesters. The seminar method, which can take up to 11 months to complete,
is conducted weekly, is typically composed of 3-18 students, and is led by
assigned seminar leaders in order to facilitate group discussions. The
correspondence program, a self-study program delivered in a balanced
manner consisting of paper, CD-ROM, and Web-based delivery, requires up to
18 months to complete. Students move interchangeably between both
programs, but they must achieve a minimum score of 70 percent on each of
the six examinations and must complete four interactive Web-based
exercises. The nonresident programs are designed to mirror resident
programs, and there are multiple versions in use by ACSC nonresident
students. These programs do not award master's degrees, but the American
Council of Education recommends up to 21 semester hours of graduate credit
for course completion.

Joint Forces Staff College

National Defense University's Joint Forces Staff College (JFSC) is
piloting an Advanced Joint Professional Military Education pilot course
for senior-and intermediate-level reserve officers. Initially launched in
September 2003, it is designed to last 38 weeks. The period consists of 35
weeks of Web-based education and 3 weeks of resident education with 1 week
occurring after the first 8 weeks of Web-based education, and the last 2
weeks at the end of the 38-week period. JFSC, already responsible for the
resident Joint PME Phase II course used to complete the education process
for joint specialty officers, was tasked to develop a Joint PME course for
reserve officers in response to the fiscal year 1999 National Defense
Authorization Act and the Joint Staff Guidance in May 2000. While there is
no joint specialty officer requirement for reserve officers, JFSC was
required to prepare reserve officers for joint duty assignments by
providing a course similar in content to its resident Joint PME course,
and to do so by utilizing current distance learning applications.

                                  Appendix IV
                    ADL Applications and Additional Features
                            of Nonresident Programs

Additional Features of Nonresident PME Programs

There are additional features of PME programs that affect the nature of
their ADL applications. Those features include:

o
Student Board Selection-Nonresident students are selected to attend the
PME schools either through an annual board selection process or through
open admissions. Only USAWC selects its nonresident students; the other
programs with ADL applications have open-admission policies.

o
Joint Professional Military Education-A significant portion of the PME
curriculum involves study of joint service issues along with
service-specific issues. Officers who successfully complete senior-or
intermediate-level PME course work are awarded Joint PME Phase I credit,
which is required for those who wish to serve as joint specialty officers.
All nonresident programs with ADL applications grant Joint PME Phase I
credit.

o
Service Promotion Impact-PME officials stated that PME program completion
and other forms of higher education are factors used in consideration for
promotion and vary among the services. Generally, the Air Force requires
completion of a corresponding PME level of study before a candidate is
considered for the next promotion level. The Army, while not as strict as
the Air Force, places a high value on PME and graduate education in
promotion decisions. The Navy, placing a higher premium on operational
experience, currently is less inclined to recognize PME as a credential
for promotion.

o
Learning Objectives Between Programs-PME officials stated that, as
outlined by Joint Staff policies, learning objectives for nonresident
courses are required to be the same for resident courses, regardless of
the method of delivery. PME schools have instituted internal control
processes to ensure the achievement of learning objectives for all
programs, irrespective of delivery method. Generally, PME schools apply
similar evaluation systems and criteria to both resident and nonresident
programs.

o
Levels-of-Learning-PME schools teach to differing achievement levels
across and within the services, and they have designed their curricula
accordingly. School officials refer to these achievement levels as
"levels-of-learning" based on a taxonomy defined in the Joint Staff
policy. (See table 3 for a detailed definition of levels-of-learning

                                  Appendix IV
                    ADL Applications and Additional Features
                            of Nonresident Programs

designations.) For the schools with ADL applications, their desired levels
of learning for nonresident programs may or may not be equivalent to the
corresponding resident programs:

o  USAWC-Synthesis/Analysis (same as for resident program).

o  NWC-Application (resident program calls for synthesis/analysis).

o
ACSC-Comprehension (resident program calls for synthesis/resident).

o  JFSC (Planned)-Application (same as for resident program).

                    Table 3: Levels-of-Learning Definitions

Levels of learning Definitions

Knowledge	The ability to remember previously learned material. This level
involves recall of a wide range of material, from specific facts to
complete theories, but all that is required is bringing to mind
appropriate information. Terminology for achievement: defines, describes,
identifies, labels, lists, matches, names, outlines, reproduces, selects,
and states.

Comprehension	The ability to grasp the meaning of material. Translating
material from one form to another, interpreting material, or estimating
future trends may show this level. Terminology for achievement: converts,
defends, distinguishes, estimates, explains, extends, generalizes, gives
examples, infers, paraphrases, predicts, rewrites, summarizes, translates,
and understands.

Value	The internalization and consistent display of a behavior. The levels
of valuing consist of acceptance of a value, preference for a value, and
commitment (conviction).

Application	The ability to use learned material in new and concrete
situations. This level includes application of rules, methods, concepts,
principles, laws, and theories. Terminology for achievement: changes,
computes, demonstrates, discovers, manipulates, modifies, operates,
predicts, prepares, produces, relates, shows, solves, and uses.

Analysis	The ability to break down material into its component parts so
that its organizational structure may be understood. This level includes
identification of the parts, analysis of the relationships between parts,
and recognition of the organizational principles involved. Terminology for
achievement: breaks down, diagrams, differentiates, discriminates,
distinguishes, illustrates, infers, outlines, points out, selects,
separates, and subdivides.

Synthesis	The ability to put parts together to form a new whole. This
level involves production of unique communications, a plan of operations,
or a set of abstract relations. Terminology for achievement: categorizes,
combines, compiles, composes, creates, devises, designs, explains,
generates, modifies, organizes, plans, rearranges, reconstructs, relates,
reorganizes, revises, rewrites, summarizes, tells, and writes.

Evaluation	The ability to judge the value of material for a given purpose.
Judgments are to be based on defined internal (organizational) or external
(relevance to the purpose) criteria. Criteria are subject to value
judgments. Terminology for achievement: appraises, criticizes,
discriminates, explains, justifies, interprets, and supports.

Source: DOD.

Note: These terms, listed in increasing levels of achievement, are used to
define the Joint PME learning objectives for PME schools.

                                   Appendix V

                    Comments from the Department of Defense

Note: A GAO comment supplementing those in the report text appears at the
end of this appendix.

See comment 1.

Appendix V
Comments from the Department of Defense

Note: Page numbers in the draft report may differ from those in this
report.

Appendix V
Comments from the Department of Defense

GAO's Comment	The following is GAO's comment on the letter from the
Department of Defense dated July 23, 2004.

1.	When we initiated this engagement in February 2003, a key objective was
to determine (1) the assumptions for DOD's decision to move officer
senior- and intermediate-service schools from 1-year residency to shorter
periods by using ADL and (2) which courses and schools would be affected.
Immediately after fieldwork commenced, however, DOD informed us that it
was no longer actively pursuing that approach. In April 2003, after
consulting with the congressional requester, we informed our DOD point of
contact regarding our pursuit of the engagement's remaining objectives.

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