
THE CHALLENGE
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Serving all Minnesotans Minnesota, like the rest of the United States, was built by people who did not speak English as their first language. Our state--once peopled by speakers of Lakota and Ojibway--was later settled by immigrants who spoke Norwegian, German, Spanish and Swedish, as well as English. Today we welcome new peoples, speaking Hmong, Somali, Russian, or Vietnamese. Tomorrow, others will come, speaking different languages.Many Minnesotans speak limited English. Extrapolating from those facts, we can assume that there has been a very large increase in the total number of children and adults who are "limited English proficient," or LEP. Surely we are talking about at least 200,000 people, or one out of every twenty Minnesotans. Where They Come From The majority of refugees
to Minnesota in 1997 came from the former Soviet Union, Bosnia and Somalia.
Other refugee groups included Cubans, Bulgarians, Kurds, and Liberians.
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--Office of Refugee Health, Minnesota Department of Health
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Immigrants and refugees have settled primarily in urban areas, but many communities in rural Minnesota have been transformed by recent influxes of newcomers, speaking Spanish, Somali, Vietnamese and Russian.Laws guarantee access to public services. Newcomers to the United States and to Minnesota know they must learn English, the United States' language of education and commerce. But learning a new language takes time, especially for adult immigrants struggling to adjust to a new home. Title VI of the Civil Rights Act of 1964
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"No person in the United States shall, on ground of race, color, or national origin, be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity receiving Federal assistance." Minnesota Statutes 1995 (15.441) "Every state agency that is directly involved in furnishing information
or rendering services to the public and that serves a substantial number
of non-English-speaking people shall employ enough qualified bilingual
persons in public contact positions, or enough interpreters to assist those
in these positions to ensure provision of information and service..."
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THE NEED
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Professional Health Care Interpreters The need for clarity and understanding is paramount in any setting where people seek services. But in a hospital or clinic, life-and-death-decisions hinge on immediate, accurate communication. The consequences of poor communication can be devastating. Inaccurate history-taking, unnecessary testing, and misdiagnosis are just a few of the risks.Minnesota has not met the requirement for access, particularly in health care. Minnesotans with limited English skills have trouble gaining access to our state's health care system. Bilingual health care providers are few. For example, although there are nearly 50,000 Hmong people living in Minnesota, the state has only six Hmong-speaking physicians. There are no Somali-speaking physicians licensed to serve the state's estimated 12,000 Somali refugees. Hundreds of Spanish-speaking patients are served each year by Madelia Community Hospital in southern Minnesota, which in spring of 1998 had one bilingual nurse, and no trained interpreters. Federal Laws on Language Access in Health Care
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Title VI of the Civil Rights Act The Hill-Burton Act Medicare Medicaid Categorial Grant Programs Emergency Medical Treatment and Active Labor Act
Minnesota Laws on Language Access in Health Care "Bilingual Services
Act "1995 (MN Statutes 15.441, Subd. 1)
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Metropolitan hospitals such as Hennepin County Medical Center, Regions Hospital and Mayo Medical Center have attempted to comply with state and national laws by hiring full time foreign language interpreters; for example, Mayo Medical Center has 80 interpreters on the payroll.Better access benefits health care systems. Equal access for limited English-speakers is the law. Beyond complying with a legal mandate, however, community and health systems should have many other reasons for wanting improved access for LEP clients and patients. Minnesota's legal system has already recognized the benefits of providing interpreters in the court room, and mandates the use of trained interpreters in all state courtrooms. Children Are Not Suitable Interpreters
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In one widely cited incident, a seven-year old girl was asked to tell
her mother what an ultrasound examination had revealed: that the woman's
fetus was dead in utero.
A teenager incorrectly interpreted a Minneapolis physician's directive
for x-rays, and told his mother that she was going to be microwaved.
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Health care systems have been slower in recognizing that better access leads to: "The result of language barriers is often poor compliance,
inappropriate follow-up and patient dissatisfaction."
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--Language Barriers in Medicine, Woloshin, et al, 1995 Journal of the
American Medical Association
"Courts have held that a physician's failure to overcome language barriers in treatment can establish a lack of informed consent." --Ensuring Linguistic Access in Health Care Settings, Kaiser Foundation
report
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Courts in various states have ruled in favor of plaintiffs who were unable to understand what a health care provider was trying to communicate to them, and have ruled that it is the provider's professional responsibility to overcome any language barrier.Greater use of interpreters benefits many community services. The benefits that accrue to health systems using properly trained foreign language interpreters have corollaries in other community services.
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"Courts have construed professional standards of care to find that in cases where a language barrier exists between a physician and a patient, the doctor has a duty to take adequate steps to be certain that he fully understands the patient's complaints." Ensuring Linguistic Access in Health Care Kaiser Foundation Report
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THE TASK
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DEFINING QUALIFIED INTERPRETERS Interpreters in health care and other community settings assume professional responsibilities. Like all professionals, they must be qualified, i.e., they must adhere to a set of standards of competence and ethics; receive appropriate training; and be able to demonstrate their skills. "Medical interpreting as a profession is in its infancy...By
simultaneously setting clear, high standards of performance and creating
rigorous training and academic programs, a marked increase in the quality
of interpreting in the health care arena will follow."
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--Medical Interpreting Standards of Practice, Massachusetts Medical
Interpreters Association
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PROFESSIONAL STANDARDS
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BACKGROUND The essential role of the interpreter is to make it possible for two or more individuals who do not share a common language to communicate directly with each other as if they did.Interpreting calls upon multiple skills. Many people speak more than one language, but simple bilingualism is only the beginning of interpretation. Skills central to the interpretation process include: "Standards are needed to give interpreters and translators
professional status in hospitals. Many hospitals consider medical interpreters
clerical or temporary help."
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--John Nicrosz, president of the Massachusetts Medical Interpreters
Association
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PROFESSIONAL STANDARDS
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RECOMMENDATIONS Core Competencies Any job can be broken down into separate tasks, each requiring different skills, or competencies. Core competencies are those skills which interpreters must master in order to carry out their professional role. The Working Group recommends the following ten core competencies for interpreters. The competent interpreter: 1. Introduces self and explains role. Ideally, the interpreter consults first with the provider to learn the goals of the medical encounter, and with the patient to assess language requirements. Then, if this is their first meeting, the interpreter explains his role to both the patient and the provider. The interpreter must emphasize the professional obligation to transmit everything that is said in the encounter to the other party and to maintain confidentiality.2. Positions self to facilitate communication. The interpreter should be seen and heard by both parties, but should position herself in the place that is least disruptive to direct communication between provider and patient, and most respectful of the patient's physical privacy.3. Accurately and completely relays the message between patient and provider. The interpreter converts oral messages expressed in one language into their equivalent in the other, so that the interpreted message can elicit the same response as the original. The interpreter does not alter or edit statements from either party, or comment on their content. The goal is for the patient and the provider to feel as if they are communicating directly with one another. Core Competencies Have Wide Application
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These competencies are written to apply to health care interpreting,
but with few exceptions, can apply to the job of interpreting in social
service or other community settings.
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4. Uses the interpretation mode that best
enhances comprehension.
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The interpreter encourages direct communication between patient and provider, using whatever modes are appropriate. Usually, the best mode will be to use "I..." in reference to the speaker, rather than "he said that..." or "she said that..." and to interpret for the patient and the provider alternately (known as consecutive interpreting.)5. Reflects the style and vocabulary of the speaker. The interpreter attempts to preserve the register (special vocabulary and level of formality) as well as the emphasis and degree of emotion expressed by the speaker.6. Ensures that the interpreter understands the message to be transmitted. The interpreter asks for clarification or repetition if the message from either party is unclear.7. Remains neutral. In situations where there is conflict between patient and provider, the interpreter continues interpreting completely, lets the parties speak for themselves, and does not take sides.8. Identifies and separates personal beliefs from those of the other parties. The interpreter does not project his own values into the discussion.9. Identifies and corrects own mistakes. The interpreter checks the accuracy of her own interpretation.10. Addresses culturally based miscommunication, when necessary. The interpreter identifies instances in which cultural differences between provider and patient have the potential to seriously impair their communication. In those instances, the interpreter shares cultural information with both parties that may be relevant, or assists the speaker in developing an explanation that can be understood by the listener. Competencies Are Based on National Standards
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This list of core competencies is based on the "Massachusetts Medical Interpreters' Association Standards of Practice," a document developed in 1995 by the Massachusetts Medical Interpreters Association and Educational Development Center, Inc. Those standards were endorsed in 1998 by the National Council on Interpretation
in Health Care.
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Ethics
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Codes of ethics are guidelines that help interpreters maintain professional relationships with colleagues and clients. The Working Group recommends the following set of professional ethics standards for interpreters. An ethical interpreter: 1. Maintains confidentiality. Information divulged in any interpreted exchange--for example, between a patient and a health care provider--is private. The interpreter does not intentionally reveal confidential information.2. Interprets accurately and completely. The interpreter is committed to transmitting the content and spirit of the original message into the other language without omitting, modifying, condensing or adding.3. Maintains impartiality. The interpreter withdraws from assignments where personal ties or beliefs may affect impartiality, and refrains from interjecting personal opinions or biases into the exchange.4. Maintains professional distance. The interpreter understands the boundaries of the professional role and monitors her own personal agenda, refraining from becoming personally involved in a patient's life.5. Knows own limits. The interpreter declines to interpret beyond his training, level of experience and skills. In addition, he avoids situations that may represent a conflict of interest or may lead to personal or professional gain.6. Demonstrates professionalism. The interpreter clearly understands her role and refrains from delivering services that are not part of that role. The interpreter conducts herself in dress, posture and speech in a manner appropriate to the situation, and is respectful, courteous and honest. A National Template
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These ethical standards are also based on the Massachusetts Medical
Interpreters' Association Standards of Practice.
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TRAINING
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BACKGROUND Good interpreters are trained, not born. Comprehensive training is needed for a bilingual person to become an effective interpreter. Ideally, such training should take months, or even years. A recent survey of U.S. and Canadian interpreter training described programs as brief as six hours, and as long as three years.There are few training programs for interpreters. In 1996, the Legislature directed the Minnesota State Colleges and Universities (MnSCU) to develop a statewide model instruction program in interpreting and translation. Although such a plan was developed, based on the University of Minnesota's existing courses in interpreting, the plan lacked an implementation structure, and it was never funded. "Training enables the trained interpreter to perform
his task with accuracy and confidence, the clinician to trust an indispensable
tool, and the non-English speaking patient to be provided with reliable
diagnosis and quality care."
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--New York City Hospitals and Heath Care Corporation,1986
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Minnesota still needs a comprehensive training curriculum that is accessible statewide to anyone wishing to become a spoken-language interpreter. Currently, there is no such program, although a partial program exists at the University of Minnesota. (See Appendix 5 for a description of the program.)
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TRAINING
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RECOMMENDATIONS The Working Group agreed on recommended parameters for a multi-site, statewide, two-year pilot training program for interpreters in health care and other community settings. These are outlined below.Goal In the first year of training: to develop general interpreting skills.Target Population Individuals with demonstrated bilingual proficiency and interest in the field, with priority given to those who speak languages that are in demand for interpretation in Minnesota. Minimum size of each year's training cohort: 64 enrollees total in three sites.Level An accredited university and/or community college.The University of Minnesota provides coordination, lead instuctors, course materials and instructors' manuals. Course credits should be transferrable.Teaching Sites Three proposed pilot sites: "We need training! Medical terminology classes, skills
classes, etc."
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--Comment written by a Minnesota interpeter attending the September
24 Working Group meeting for interpreters
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Curriculum
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All courses beyond the first course would include laboratory sessions supervised by bilingual instructors. Courses uniform in content and transferrable.Basic courses Two courses: an introduction to interpreting and intermediate interpreting. The courses would emphasize the role, ethics and skills needed to interpret, and offer lab instruction.LengthFundamentals course: Fundamentals course in health care or law, as a bridge to specialized courses. Courses taught in sequence, usually one course per semester, requiring two to two-and-a-half years for completion.Prerequisites Basic courses :Bilingual proficiency, as established by examination.Instructors Experienced in interpreting. Lead instructor position requires bachelor's degree. Assistant instructors with bachelor's degree preferred. Instructors' manual with texts and materials available for each course. Recommended Training Sites
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1. The University of Minnesota campus, Mpls/St Paul 2. University Center-Rochester 3. A community college in southwest or northwest Minnesota
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PROOF OF SKILLS
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BACKGROUND Individuals seeking to establish a record of their skills and training as professional interpreters have no common system of certification or validation in Minnesota. Employers seeking to assess the skill level of would-be interpreters also have a difficult time. What is needed is a simple, consistent way to establish an interpreter's skill level.Certification ensures minimal competence. The skill level of a trained interpreter can be certified by others who are capable of assessing their professional competence. Such assessment or even certification provides a measurable standard which allows employers to know whether the interpreters they hire meet at least minimal competence criteria.States have begun to monitor interpreters. To date in the U.S., however, only Washington state has instituted a certification program for medical and social service interpreters. It requires interpreters hired by agencies with state contracts to pass an examination administered by the Washington Department of Health and Human Services. "It is difficult from the standpoint of an agency
to determine the qualifications of interpreters. It would be to everyone's
benefit to have a test to follow."
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--A Minnesota interpreter agency owner, at the September 24 Working
Group meeting for interpreters
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PROOF OF SKILLS
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RECOMMENDATIONS The Working Group recommends a two-tiered system of assessing the proficiency of interpreters. Tier 1 establishes a minimum level of testable skills and recommends basic training for all interpreters; Tier 2 establishes recommended levels of skill and training for interpreters in specialized settings, such as health care.TIER 1: Minimum level of testable skills and training for all interpreters Bilingual proficiency Recommended : All individuals hired to perform interpreting services should, at minimum, be able to demonstrate oral proficiency in each language through a test developed by the American Council of Teachers of Foreign Languages (ACTFL). An ACTFL score of "advanced-mid" level is recommended. (See Appendix 3 for more information on this test.)Basic understanding of professional ethics Recommended : All individuals hired to perform interpreting services should, at minimum, pass a test of comprehension of ethical standards. This test will be developed, based on the ethics standards endorsed by the Working Group.Basic interpreting training Recommended : In addition, it is recommended that all individuals hired to perform interpreting services complete basic courses in interpreter training offered through the University of Minnesota/ MNSCU system (Introduction to Interpreting and Intermediate Interpreting.)
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TRAINING 19
TIER 2: For interpreting in specialized
settings, for example, health care.
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Specialized skills Recommended :All individuals hired to serve as health care interpreters in Minnesota should pass a state health care interpreter certification test. This is an oral test to be developed, modeled on the Court Interpreter test now offered in Minnesota and on other certification exams. This test should establish a testee's bilingual proficiency as equivalent to the ACTFL "Superior" level. (For more information on the ACTFL test, see Appendix 3)Specialized training Recommended :All individuals hired to serve as health care interpreters in Minnesota should complete the basic courses as previously outlined, plus the courses in medical interpreting, to be offered through the UM/MNSCU program. (Fundamentals of Health Care for Interpreters; Interpreting in Health Care Settings; and a practicum.) Training, though not required for certification, will benefit even those interpreters who pass the certification test.Advanced interpreting skills and training Recommended :Individuals who have passed the health care interpreting certification test (to be developed); have significant experience as a medical interpreter and have recieved advanced training in medical interpreting can be considered to possess advanced medical interpreting skills. Continuing education for interpreters should be made available through employers, professional associations and educational institutions.
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TRAINING
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THE BENEFITS AND COSTS
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BACKGROUND Increased training, higher professional standards and greater utilization of health care and community interpreters will greatly benefit Minnesota's social service and health care systems. But few benefits are truly free. For Minnesota residents to enjoy equal access to health and social services that all are promised, regardless of the language they speak, we will have to manage the costs implicit in keeping that promise.Professional interpreter services are more costly. A comprehensive statewide training program for medical interpreters will cost money, as will a new system of certification for the interpreting profession. Using trained professional interpreters will cost health care and social service agencies more than relying inappropriately on untrained friends and family members.But consider the cost of the status quo. The hidden costs of the status quo must be acknowledged as well, in any cost-benefit inventory. Consider the Costs
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To adequately serve its growing LEP population in 1997, Hennepin County
Medical Center spent over $1,000,000 in costs related to interpreter services.
Consider the Benefits What benefits accrue to social service and health care providers who
bridge the language gap between themselves and their newest patients?
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The Budget
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Recommended This budget is for a two-year pilot period, beginning in 1999. Staff coordination is needed for the following tasks:
Funding Sources
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Funding should come from a public-private partnership, including state
agencies, the state colleges and universities, the legislature, private
foundations and businesses. Interpreters will also bear some of the cost
of their own training, through tuition fees.
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ACTION STEPS
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RECOMMENDED Below are just a few ways in which every stakeholder reading this report can act on the recommendations in it. You can contact any member of the Working Group to express your interest.If you are an academic If you are an advocacy community member If you are the administrator of a health care facility If you are a health care provider If you are an interpreter If you are a legal advocate If you work in a state Medicaid agency To Be Continued...
| As of November, 1998, the Working Group of the Interpreter Standards
Advisory Committee has been funded for three months to begin implementing
the recommendations in this report.
Follow the Working Group's progress or get involved: consult the Web site at (click "Interpreter Standards") or call coordinators Barbara Babbitt and Patricia Ohmans at (651) 489-4238.
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(c)2000 by Somali Interpreters Last updated Oct. 2000