Language Policies in Colombia: A Critical Overview of Bilingualism Efforts

 Colombia has implemented various national language policies over the years to improve its citizens' proficiency in foreign languages, particularly English. These policies are designed to enhance the country’s participation in global communication, the economy, and cultural exchange. However, despite the ambitions of these initiatives, challenges remain, especially in terms of teacher preparation, student performance, and alignment with global standards.

Key National Bilingualism Policies

The Colombian government has launched several policies aimed at improving foreign language education, particularly English, including:

1. PNB (National Bilingualism Program, 2004-2019): This initiative aimed to develop the language skills of Colombian citizens to enable their participation in global communication and the global economy.
2. PFDCLE (National Foreign Language Education Policy, 2010-2014): This policy focused on improving the language skills of teachers and students, emphasizing foreign languages as a key component in enhancing Colombia’s integration into the globalized labor market.
3. Ley 1651 (Bilingualism Law, 2013): This law established the goal of improving communication skills in foreign languages for all Colombians, particularly in terms of reading, writing, speaking, and listening.
4. PNI (National Inclusion Program, 2015-2025): Aimed at transforming Colombia into the most educated country in Latin America, with a specific focus on enhancing English proficiency by 2025.
5. Colombia Bilingüe (2014-2018): This program sought to help students and teachers improve their English language skills, thereby providing better opportunities for academic and professional mobility.

Theoretical Foundations: Common European Framework of Reference for Languages (CEFR)

The Common European Framework of Reference for Languages: Learning, Teaching, Assessment (CEFR) (Council of Europe, 2001) serves as the theoretical foundation for these bilingual policies. The CEFR provides a standardized system to measure language proficiency, with levels ranging from A1 (beginner) to C2 (proficient). It is a globally recognized framework used to assess language competencies and guide language teaching across Europe and beyond.

Program Objectives and Achievements

Each bilingual policy has set ambitious objectives aimed at increasing the English proficiency of students and teachers. The objectives generally include:

• Colombian citizens becoming proficient in English: This would allow Colombians to participate more actively in global communication, cultural exchange, and the global economy.
• Improving the language skills of teachers and students: Policies aim to raise the proficiency levels of teachers, particularly those in public education, to enable them to teach effectively and foster the language skills of their students.
• Educational mobility: English proficiency is seen as a way to improve academic, social, and job opportunities for Colombian citizens, especially through access to international scholarships and employment opportunities.

Despite these ambitious goals, progress has been slow. For instance, the goal for 11th-grade students to achieve a B1 level of English proficiency by 2019 was met by only a small percentage, with just 8% of students reaching this level by 2018. Teachers' language proficiency is similarly lagging, with the expectation that in-service teachers should reach a B2 level, and new graduates from language programs should attain a C1 level. However, there are few reliable indicators to measure the success of these objectives, especially among in-service teachers.

Teacher Support Programs

Several teacher support initiatives have been established, such as English immersion programs and socialization workshops on the implementation of foreign language standards in the classroom. However, these programs have not been universally implemented, and there are no clear indicators for their effectiveness. For example, while over 4,000 teachers were trained in bilingual methodologies under the Colombia Bilingüe initiative, there is limited evidence of sustained improvements in teaching practices.

Evaluation of Progress: The Saber 11 Test

The Saber 11 test, a standardized exam administered by ICFES, is one of the main tools used to assess the progress of bilingual education policies. This test evaluates students' competencies in various subjects, including English. It includes multiple-choice questions designed to assess vocabulary knowledge, reading comprehension, grammar, and pragmatics. However, the test has significant limitations. It primarily assesses reading comprehension and offers minimal insight into other language skills, such as writing or speaking. As a result, it is difficult to determine whether a student is truly bilingual based on this single evaluation.

Challenges and Limitations

Despite the government's efforts to create a bilingual society, several challenges persist:

1. Teacher Preparation: Many Colombian teachers still lack the linguistic and pedagogical skills necessary to implement the CEFR guidelines effectively. This discrepancy between policy expectations and teacher readiness is a significant barrier to the success of bilingual programs.
2. Curriculum and Materials: While innovative teaching methods and curricula have been proposed, the actual implementation of these methods in schools is often hampered by a lack of resources, including the necessary materials and access to information and communication technologies.
3. Insufficient Political Will: There is a broader issue regarding the lack of political will to address the deep structural issues within the educational system. Without recognizing and addressing these issues, Colombia’s goal of becoming the most educated country in Latin America by 2025 seems increasingly unlikely.

Conclusion

Although Colombia has made strides in promoting bilingualism through various national policies, the road to achieving these goals is fraught with obstacles. The challenges related to teacher preparation, curriculum alignment, and the limited scope of language assessments indicate that achieving high levels of English proficiency across the population will require more than just policy changes. There is a need for sustained efforts to address the deeper structural issues in education, and to ensure that all Colombians have access to the resources necessary to participate fully in the global economy and cultural exchange.

References

Council of Europe. (2001). Common European Framework of Reference for Languages: Learning, teaching, assessment. Cambridge University Press.

ICFES. (2011). Examen de Estado de la educación media. Resultados del período 2005–2010. https://www.icfes.gov.co/documents/20143/193784/Examen%20de%20estado%20de%20la%20educacion%20media%20Resultados%20del%20periodo%202005-2010.pdf

ICFES. (2016). Saber 11 Resultados nacionales 2011–2014. https://www.icfes.gov.co/documents/20143/193784/Informe%20nacional%20saber%2011%202015.pdf

ICFES. (2018). Informe Nacional: Resultados nacionales 2014-II – 2017-II Saber 11. Colombia 2018. https://www.icfes.gov.co/documents/20143/1628232/Informe%20nacional%202014-2%20al%202017-2%20saber%2011%20-%202018.pdf

Ministerio de Educación Nacional. (2019). Contexto colombiano en el dominio del inglés. http://aprende.colombiaaprende.edu.co/es/colombiabilingue/86717