I'd like to add to this discussion as one (hopefully not the only one) who has attended their nation's military language school (for U.S.: Defense Language Institute, or DLI), who was required to take language proficiency exams (Defense Language Proficiency Test) annually from 1986 to just a couple years ago. A couple of notes, none of which are based on science:
1) I like to talk about passive and active proficiency/skills. Under passive I put reading and listening (hold on, I'll explain) and under active, speaking and writing. Now I say passive purely based on my unscientific experience on how I study the language, take proficiency tests in the language, or work in the language. Reading and listening, I'm taking L2 input into my brain, which translates it into my L1 for me to understand. Then, if I want to respond to that input, I switch to active: My brain takes my L1 response, and has to actively translate that into the L2 so that I can respond to my interlocutor.
2) This was the way I explained it to the military linguists I worked with when I would catch them always studying vocabulary one way: L2 to L1. I would tell them to flip their flashcards over and study L1 to L2. Much harder. But those who made a concerted effort at studying that way would do better on the speaking proficiency test.
3) Now I know the above can be language specific. In my experience, which was Slavic-heavy, most of my colleagues were very good at reading and listening, but only so-so at speaking. This was mostly due to the job not requiring speaking (and their study habits, as I describe above). But I had friends who were Chinese linguists, who would always do really well on the speaking and listening test and not so well on the reading. But I contend that if they knew the character, they'd be able to understand it passively, but the action of having to study so many characters and learning/memorizing them is an active skill.
4) With regards to practical measures of proficiency, personally I use the term "Berlitz level." If I can order food (beer!), get a hotel room, follow and ask for directions, buy a ticket to something, I say that I'm at "Berlitz level in X-language." In ACTFL terms, I'd say that's about a 1 to a 1+. And for most languages, I'm happy with that.