Language Policies in Colombia: An Examination of Key National Bilingual Initiatives

 Colombia has developed several language policies over the years aimed at improving English proficiency among its citizens, particularly in the context of globalization and international communication. These policies are designed to enhance the country’s participation in the global economy, improve cultural openness, and boost educational opportunities. This analysis presents a comparative overview of the major bilingual policies in Colombia from 2004 to 2025, with a focus on the programs, objectives, and results based on the frameworks outlined in various governmental decrees and laws.

Comparative Table of Key Language Policies in Colombia (2004-2025)

Policy	PNB (2004-2019)	PFDCLE (2010-2014)	Ley 1651 (2013: Ley de Bilingüismo)	PNI (2015-2025)	Colombia Bilingüe (2014-2018)
Theoretical Foundations	Common European Framework of Reference for Languages: CEFR 2001 version	Common European Framework of Reference for Languages: CEFR 2001 version	Common European Framework of Reference for Languages: CEFR 2001 version	Common European Framework of Reference for Languages: CEFR 2001 version	Common European Framework of Reference for Languages: CEFR 2001 version
Program Objective	Develop citizens capable of communicating in English to integrate Colombia into global processes	Develop foreign language skills, particularly English, in teachers and students	Develop communication skills for expression in a foreign language	Improve Colombia's position in Latin America and globally through enhanced English proficiency	Improve communication in English for students to access opportunities
Eleventh Graders’ Language Level Goal	100% at B1 level by 2019	40% at B1 level by 2014	No defined indicators	50% at B1 level by 2025	8% at B1 level by 2018
Teachers’ Language Level Goal	Level B2 for in-service teachers and Level C1 for new graduates	100% of in-service teachers to achieve Level B2	No indicators for teachers’ language level	85% of in-service teachers to reach B2 by 2018	100% of teachers at A1/A2 to improve by 1-2 CEFR levels by 2025
Teacher Support Programs	Workshops, immersion programs, training for 4,300 teachers	No defined support programs, training for selected teachers	No defined support programs	Access to 200-500 hour courses, immersion programs, methodology training	English Fellowship Program, curriculum design, bibliographic materials

Theoretical Foundations: CEFR as a Standard Framework

All these national bilingual policies are grounded in the Common European Framework of Reference for Languages (CEFR), which provides a standard for language proficiency across Europe. The CEFR framework is divided into levels (A1, A2, B1, B2, C1, C2) that describe the abilities of language learners, offering a universally recognized guideline for teaching, learning, and assessing foreign languages (Council of Europe, 2001). The goal of aligning Colombia’s language policies with the CEFR is to ensure that Colombian citizens achieve internationally comparable standards of proficiency, particularly in English, to enhance their integration into the global community.

Program Objectives and National Language Goals

The objectives outlined in these bilingual policies aim to foster citizens capable of communicating in English for better participation in international and cultural exchanges, as well as in the global economy. For example, the Plan Nacional de Bilingüismo (PNB) focused on equipping students with the English proficiency necessary for active global communication, while Colombia Bilingüe sought to improve English skills for accessing academic and job opportunities abroad. Both initiatives emphasized achieving a B1 level of proficiency for students by the end of high school, while specific teacher proficiency targets were also set, ranging from B2 for in-service teachers to C1 for new graduates.

However, the language level targets for students have varied over the years. For instance, the Ley 1651 (Ley de Bilingüismo) set the ambitious goal of achieving B1 proficiency for 100% of 11th-grade students by 2019, but by 2018, only 8% of students had reached this level, according to ICFES (2018). These disparities reveal the challenges in achieving these goals despite sustained efforts.

Teacher Support and Professional Development

Supporting teachers is central to the success of bilingual policies. Several programs have been introduced to improve teachers' proficiency and pedagogical practices. The PNB included socialization workshops and English immersion programs, while Colombia Bilingüe introduced programs that provided up to 500 hours of language training for teachers. Nevertheless, despite these efforts, the lack of widespread teacher training and the disparity in program implementation across regions have hindered the overall impact of these policies.

A significant obstacle has been the insufficient alignment between the theoretical foundations of language teaching and the practical realities of the classroom. Many teachers, particularly those in rural areas, still lack the necessary training and resources to effectively teach English according to CEFR standards. Additionally, in many schools, there is a limited availability of digital tools and materials to support modern language instruction, making it difficult to implement innovative, technology-driven methodologies.

Performance and Assessment: The Saber 11 Test

The Saber 11 test, administered by ICFES, is the key assessment tool for evaluating students' language proficiency at the end of secondary education. This standardized test includes multiple-choice questions assessing reading comprehension, vocabulary, grammar, and pragmatic usage of English. However, the test has been criticized for its narrow focus on reading and vocabulary, which does not fully capture the complexities of language proficiency, such as speaking and writing skills.

The results of the Saber 11 tests over the years highlight the limited progress made in improving English proficiency among Colombian students. While the PNB aimed for 100% of 11th-grade students to achieve B1 proficiency by 2019, the results show that the target was far from being met. In 2017, only 32% of students achieved a B1 level or higher (ICFES, 2018), indicating that there is still much work to be done.

Conclusion: Challenges and Opportunities

The evolution of language policies in Colombia has seen significant investment in teacher training, curriculum development, and assessment tools, yet the country faces persistent challenges in achieving its bilingualism goals. These challenges include disparities in teacher preparation, a lack of resources, and the limited scope of language assessments.

The future of bilingualism in Colombia will depend on addressing these gaps through more inclusive and context-sensitive policies, as well as ensuring that language education programs are aligned with the real needs of students and teachers. Without these improvements, the ambitious goals set in the PNI and Colombia Bilingüe are unlikely to be achieved.

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. Retrieved from https://www.icfes.gov.co

ICFES. (2016). Saber 11 Resultados nacionales 2011 – 2014. Retrieved from https://www.icfes.gov.co

ICFES. (2018). Informe Nacional: Resultados nacionales 2014-II – 2017-II Saber 11. Colombia 2018. Retrieved from https://www.icfes.gov.co

Ministerio de Educación Nacional. (2019). Contexto colombiano en el dominio del Inglés. Retrieved from http://aprende.colombiaaprende.edu.co