**Achievements of a Bilingual Policy: The Colombian Journey Journey**

**Achievements of a Bilingual Policy: The Colombian** 

DOI: 10.5772/intechopen.72114

Julio C. Alonso Cifuentes, Diana M. Díaz Mejía and

Julio C. Alonso Cifuentes, Diana M. Díaz Mejía and Daniela Estrada Nates Daniela Estrada Nates Additional information is available at the end of the chapter

Additional information is available at the end of the chapter

http://dx.doi.org/10.5772/intechopen.72114

#### **Abstract**

The Colombian journey to become a country with an educational system that develops bilingual skills in students began in 1979. More recently, Colombia National Ministry of Education presented Colombia's National Bilingualism Program 2004–2019, a policy that recognized for the first time that mastering English was a matter of advantages in competitiveness for the country. Two important goals were established under this policy for 2014. First, 40% of secondary graduates should achieve at least an intermediate level—B1 or threshold or independent user following the Common European Framework of Reference for Languages (CEFRL). Second, 20% of Bachelor degree (under) graduates should achieve at least a vantage or upper intermediate—B2 level. A descriptive approach was applied to the data and it was found that the neither goal was met. The impact of the different programs implemented should be evaluated, so goals proposed for 2025 can be achieved.

**Keywords:** bilingualism public policy, Colombia, language test, higher education and secondary education

**1. Introduction**

Colombia is a multilingual and multicultural country. The government recognizes the coexistence of different native languages and Spanish in the same territory, as well as the importance of teaching a foreign language, especially English. Spanish is Colombia's most widely spoken official language, which is present in all high schools´ levels and university curriculums, and the Ministry of National Education (MEN) has set standards for its teaching as well as measures of students' performance at the end of high school and college.

Attribution License (http://creativecommons.org/licenses/by/3.0), which permits unrestricted use, distribution, and reproduction in any medium, provided the original work is properly cited. © 2018 The Author(s). Licensee IntechOpen. This chapter is distributed under the terms of the Creative Commons Attribution License (http://creativecommons.org/licenses/by/3.0), which permits unrestricted use, distribution, and reproduction in any medium, provided the original work is properly cited.

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The MEN has stated main objectives for language's instruction (Spanish as a first language) that high-school graduates should be able to communicate in oral and written form, transmit information, represent reality, express feelings and esthetic properties, be responsible citizens and give meaning to their existence.

promoted and tried to preserve native language by translating into many of those languages, the peace agreements (the process that Colombia has been living for a few years now). These initiatives hope to keep languages alive, promoting its use, and keeping people who use them informed of important political, economic, and social issues. Nonetheless, since these actions for information dissemination do not come accompanied by a pedagogical strategy to promote education in these languages or even make sure that they are being taught in schools,

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Colombian Government and society have not developed strategies to follow up on the application of the Law of Native Languages. There are, however, explicit efforts and policies to improve English proficiency levels within the Colombian population mainly for economic reasons. Colombian policymakers have made clear different reasons to implement a successful bilingual (English) program. First, there is substantial evidence of a positive and statistically significant relationship between English proficiency and critical economic variables. For example, [4] found a relationship between higher levels of English proficiency in population and positive economic growth. Several studies [5–7] provide evidence on the relationship of English proficiency levels of the population and international trade development. In the same vein, [5] documented the relationship between people's English proficiency levels and a higher level of integration with the global economy and a greater level of competitiveness.

Second, the Colombian Government wants to implement strategies and programs for internationalization of its economy. One condition for these to be successful is to guarantee that national citizens dominate the mastery of English, the language of international businesses, so they can truly take advantage of the opportunities of an internationalized economy. For example, to benefit from the activities carried out through ProColombia (Tourism, Foreign Investment, and Exports Promotion Agency) such as international fairs, business agendas, macro business rounds, and other promotional activities [8], it is necessary that Colombian

Third, the Colombian government has implemented the Productive Transformation Program (PTP), which has identified key sectors that should propel Colombia's economic competitiveness, increase employment and productivity [9]. Some of these sectors have a close relationship with Colombian labor force English proficiency. For example, one of the selected sectors is the business processes outsourcing (BPO), which can offer accounting services among other online worldwide services. However, to reach the English-speaking market, Colombian accountants need to exhibit a good level of English to communicate with clients. Belkaoui [10] documented that the communication problem that occurs between accountants from different countries, who do not speak the same language, affects the success of the accounting process. Another selected sector in the PTP is tourism. The Colombian government has adopted a strategy to position the country as a destination for Health and Welfare Tourism; it hopes to achieve a share between 20 and 30% of the medical tourism market by 2032. One of the strategies proposed to meet this goal is to increase health professionals' English proficiency level [11]. Additionally, Colombia was the second country recommend by **Lonely Travel** as a holiday destination because of its natural diversity, number of national parks and cultural events,

entrepreneurs must be fluent in English.

preservation, and promotion of the native languages have not been happening.

The MEN has also issued standards to suggest what needs to be taught in every grade. Although the suggested curriculum states that Spanish needs to be taught based on five factors (text production, text comprehension and interpretation, literature, communication media, and other symbolic systems and ethics of communication), the mandatory exit standardized exams only test critical reading. The oral component and literature as fundamental aspects of language are not being assessed.

MEN has found that reading and writing are being taught more systematically and efficiently, whereas the teaching of literature and oral skills have been less methodical and rigorous [1]. MEN also found that narrative texts were the types of texts mostly used by teachers. This means that all the other kinds of texts have been taught less. Despite the fact that Spanish being the primary official language, more research needs to be done to understand Spanish's learning processes and teaching in high schools and colleges.

Whereas there are basic standards of what students should be able to do at the end of each grade in Spanish, and MEN fully describes the competencies, there is nothing remotely similar for Native Languages. The MEN has not developed a curriculum to be taught nor has it included a standardized test to measure the competencies as it does in Spanish (and English). There is a route to be followed by communities to present proposals for the construction of an education program for ethnic groups. Although the mechanism exists, by 2014 only 30% of towns had submitted projects and 20% had implemented the proposals to improve the quality of their ethnic education models [2].

The Ministry of Culture has been in charge of promoting native languages, but has done so from a cultural perspective and not from an educational one. There are at least four different types of native tongues that are recognized: Amerindian languages (around 68 languages) from indigenous populations, Romani spoken by the gypsies, creole languages from African-American descent groups in San Basilio de Palenque—near Cartagena—and in San Andres Island [3]. The Colombian government, through the Ministry of Culture, has made significant efforts to acknowledge, protect, and develop native languages through Law 1381 of 2010, also known as the Law of Native Languages. Although the law seeks to promote these languages and it states that education should be bilingual where necessary, the Ministry of Culture does not ensure such educational processes. In charge of bilingual education is the Ministry of National Education (MEN), which in 2013 undertook a modification of the current Law of Education, adding items related to bilingualism. Broadly, the law states that all public schools should teach at least one foreign language and that this should not interfere with the teaching of Spanish or native languages. The law also explains that English should be considered the most important foreign language.

The Ministry of Culture has funded research to find out what is the state of each native language (how many people use it, understand it, and how are they). This Ministry has also promoted and tried to preserve native language by translating into many of those languages, the peace agreements (the process that Colombia has been living for a few years now). These initiatives hope to keep languages alive, promoting its use, and keeping people who use them informed of important political, economic, and social issues. Nonetheless, since these actions for information dissemination do not come accompanied by a pedagogical strategy to promote education in these languages or even make sure that they are being taught in schools, preservation, and promotion of the native languages have not been happening.

The MEN has stated main objectives for language's instruction (Spanish as a first language) that high-school graduates should be able to communicate in oral and written form, transmit information, represent reality, express feelings and esthetic properties, be responsible

The MEN has also issued standards to suggest what needs to be taught in every grade. Although the suggested curriculum states that Spanish needs to be taught based on five factors (text production, text comprehension and interpretation, literature, communication media, and other symbolic systems and ethics of communication), the mandatory exit standardized exams only test critical reading. The oral component and literature as fundamental

MEN has found that reading and writing are being taught more systematically and efficiently, whereas the teaching of literature and oral skills have been less methodical and rigorous [1]. MEN also found that narrative texts were the types of texts mostly used by teachers. This means that all the other kinds of texts have been taught less. Despite the fact that Spanish being the primary official language, more research needs to be done to understand Spanish's

Whereas there are basic standards of what students should be able to do at the end of each grade in Spanish, and MEN fully describes the competencies, there is nothing remotely similar for Native Languages. The MEN has not developed a curriculum to be taught nor has it included a standardized test to measure the competencies as it does in Spanish (and English). There is a route to be followed by communities to present proposals for the construction of an education program for ethnic groups. Although the mechanism exists, by 2014 only 30% of towns had submitted projects and 20% had implemented the proposals to improve the quality

The Ministry of Culture has been in charge of promoting native languages, but has done so from a cultural perspective and not from an educational one. There are at least four different types of native tongues that are recognized: Amerindian languages (around 68 languages) from indigenous populations, Romani spoken by the gypsies, creole languages from African-American descent groups in San Basilio de Palenque—near Cartagena—and in San Andres Island [3]. The Colombian government, through the Ministry of Culture, has made significant efforts to acknowledge, protect, and develop native languages through Law 1381 of 2010, also known as the Law of Native Languages. Although the law seeks to promote these languages and it states that education should be bilingual where necessary, the Ministry of Culture does not ensure such educational processes. In charge of bilingual education is the Ministry of National Education (MEN), which in 2013 undertook a modification of the current Law of Education, adding items related to bilingualism. Broadly, the law states that all public schools should teach at least one foreign language and that this should not interfere with the teaching of Spanish or native languages. The law also explains that English should be considered the

The Ministry of Culture has funded research to find out what is the state of each native language (how many people use it, understand it, and how are they). This Ministry has also

citizens and give meaning to their existence.

58 Multilingualism and Bilingualism

aspects of language are not being assessed.

of their ethnic education models [2].

most important foreign language.

learning processes and teaching in high schools and colleges.

Colombian Government and society have not developed strategies to follow up on the application of the Law of Native Languages. There are, however, explicit efforts and policies to improve English proficiency levels within the Colombian population mainly for economic reasons. Colombian policymakers have made clear different reasons to implement a successful bilingual (English) program. First, there is substantial evidence of a positive and statistically significant relationship between English proficiency and critical economic variables. For example, [4] found a relationship between higher levels of English proficiency in population and positive economic growth. Several studies [5–7] provide evidence on the relationship of English proficiency levels of the population and international trade development. In the same vein, [5] documented the relationship between people's English proficiency levels and a higher level of integration with the global economy and a greater level of competitiveness.

Second, the Colombian Government wants to implement strategies and programs for internationalization of its economy. One condition for these to be successful is to guarantee that national citizens dominate the mastery of English, the language of international businesses, so they can truly take advantage of the opportunities of an internationalized economy. For example, to benefit from the activities carried out through ProColombia (Tourism, Foreign Investment, and Exports Promotion Agency) such as international fairs, business agendas, macro business rounds, and other promotional activities [8], it is necessary that Colombian entrepreneurs must be fluent in English.

Third, the Colombian government has implemented the Productive Transformation Program (PTP), which has identified key sectors that should propel Colombia's economic competitiveness, increase employment and productivity [9]. Some of these sectors have a close relationship with Colombian labor force English proficiency. For example, one of the selected sectors is the business processes outsourcing (BPO), which can offer accounting services among other online worldwide services. However, to reach the English-speaking market, Colombian accountants need to exhibit a good level of English to communicate with clients. Belkaoui [10] documented that the communication problem that occurs between accountants from different countries, who do not speak the same language, affects the success of the accounting process.

Another selected sector in the PTP is tourism. The Colombian government has adopted a strategy to position the country as a destination for Health and Welfare Tourism; it hopes to achieve a share between 20 and 30% of the medical tourism market by 2032. One of the strategies proposed to meet this goal is to increase health professionals' English proficiency level [11]. Additionally, Colombia was the second country recommend by **Lonely Travel** as a holiday destination because of its natural diversity, number of national parks and cultural events, historic attractions, and for the warm hospitality of Colombians [12]. Throughout 2016, United States was the main country of origin of the tourists, with 498.960 people and a share of 24% of the total tourists that visited the country [13]. Thus, to boost the tourism sector, Colombia needs a higher English proficiency level in its labor force related to this economic sector.

This decision has made it possible for researchers, investors, educators, government entities, among others, to know the level of English in a standard that can be compared with and equal to international standards. The CEFRL describes what language users should be able to do at the different stages without being language specific. Therefore, it does not consider aspects related to specific languages, like English grammar or French pronunciation, but the communicative tasks that a person can develop in their learning process. Additionally, it describes

framework to interpret them. Results classify Colombian students according to the CEFRL in the following levels: A1 Breakthrough (beginner user), A2 Waystage (basic user), B1 Threshold (pre-intermediate), and B+, which it is supposed to include the higher levels: B2 Vantage (intermediate), C1 Effective operational proficiency, and C2 Mastery. Although the CEFRL refers in general to the ability to communicate considering the four skills (writing, reading, listening, and speaking) and the standards for teaching English issued by the Ministry of National Education do so too, the Colombian tests only measure reading compre-

The goal of this chapter is to determine whether students met the goals established for 2014. In particular, the aim is to determine if graduates from high school and undergraduate university programs accomplished the goal of bilingualism for 2014. To do that, this chapter describes different achievements accomplished in the main cities of Colombia (Bogotá, Medellín, Cali, Cartagena, Barranquilla, and others) and compares the types of institutions (private vs. public). Additionally, it aims to contribute to the discussion of how to implement

This chapter is divided into three sections. Section 1 covers the history of Colombian Bilingualism Policy (history) from 1979 to 2015, Section 2 focuses on presenting and analyzing the results for graduates from high school and university undergraduate programs, and

For over 40 years, the Colombian Policy Makers have designed policies to strengthen English language proficiency and teaching in the country. In 1979, the Colombian Government, through the MEN, issued a decree making the teaching of English compulsory in secondary education. The teaching of English became mandatory for grades 6 and 7 and the teaching

This does not necessarily mean that the schools should only teach reading comprehension, but it certainly indicates to schools what they will be measured on, and focus their efforts on. There is a difference in what is stated in the Laws and what is taught in the schools. The conception of bilingualism behind the policy advocates for a communicative approach, where students can use the language in oral and written form to communicate at different levels. It does not pretend for students to develop mastery in the foreign language similar to the one they have in their first language, but it does hope for students to be able to start communicating in English, in addition to Spanish. The reality of what is expected and

presents its results using this standard, so there is an international

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different communicative functions at the various stages.

The PRUEBA SABER1

hension and language use.2

a bilingual program in a developing country.

Section 3 contains some final remarks.

2

what is taught is not comparable.

**2. Colombian bilingualism policy**

Furthermore, there are numerous reasons for the implementation of a successful bilingual (English) program other than the economic ones, many of which are also aligned with the Colombian government interests. The academic literature has documented cognitive, cultural, and social benefits of being bilingual. Bialystok, from the Department of Psychology at York University in Canada, has found that bilinguals have better control of visual attention; they show advantages in various tasks where executive function is required; they have a wider range of expressive vocabulary and faster access to words as well as improved flexibility in task switching [14]. Lazaruk [15] found that bilingualism was associated with "heightened mental flexibility and creative thinking skills, enhanced metalinguistic awareness, and greater communicative sensitivity." Also, it has been proven that bilingualism can slow the effects of old age, such as the effects of dementia or Alzheimer's. Additional to the individual benefits of being a bilingual, there are social benefits. Bilinguals are believed to be more empathic, open-minded, and tolerant to difference.

The Colombian government has not been unaware of the benefits of bilingualism for almost four decades; the first public policy was designed in 1979 to strengthen English proficiency. From that year until now, MEN has promoted different public policies to increase the English language level of high school students´ and teachers'. In 2005, during the program "Educational Revolution," the MEN presented Colombia's National Bilingualism Program 2004–2019, a policy that recognized for the first time that mastering English was a matter of advantages in competitiveness for the country. As a part of that initiative, the MEN developed the Program for Strengthening the Development of Foreign Language Communication Skills (PFDCLE). Under the PFDCLE, the Colombian Government established two important goals for 2014. First, 40% of secondary graduates should achieve at least an intermediate level—B1, threshold, or independent user following the Common European Framework of Reference for Languages (CEFRL). Second, 20% of Bachelor degree (under) graduates should achieve at least a vantage or upper intermediate—B2 level.

To establish whether the goals of English Language proficiency levels are met, the government applies the SABER 111 test for high school students and SABER PRO test for students finishing their university program. These tests include a section that measures the level of English in reading comprehension and language use. In 2007, the test's results were aligned with the standards proposed by the Common European Framework of Reference for Languages (CEFRL). Since this framework is the most used worldwide, the government decided, initially to use it to assess the level of the students and teachers, and afterward as a guideline for teaching processes.

<sup>1</sup> Saber 11 and Saber PRO are part of the set of standardized test used in Colombia that seeks to assure the quality of education in the country. These sets of tests are called Pruebas Saber (Knowledge Tests) and are taken by students in third grade (SABER 3), fifth grade (SABER 5), ninth grade (SABER 9), before graduation in eleventh grade (SABER 11) and at the end of professional programs at University (SABER PRO).

This decision has made it possible for researchers, investors, educators, government entities, among others, to know the level of English in a standard that can be compared with and equal to international standards. The CEFRL describes what language users should be able to do at the different stages without being language specific. Therefore, it does not consider aspects related to specific languages, like English grammar or French pronunciation, but the communicative tasks that a person can develop in their learning process. Additionally, it describes different communicative functions at the various stages.

The PRUEBA SABER1 presents its results using this standard, so there is an international framework to interpret them. Results classify Colombian students according to the CEFRL in the following levels: A1 Breakthrough (beginner user), A2 Waystage (basic user), B1 Threshold (pre-intermediate), and B+, which it is supposed to include the higher levels: B2 Vantage (intermediate), C1 Effective operational proficiency, and C2 Mastery. Although the CEFRL refers in general to the ability to communicate considering the four skills (writing, reading, listening, and speaking) and the standards for teaching English issued by the Ministry of National Education do so too, the Colombian tests only measure reading comprehension and language use.2

The goal of this chapter is to determine whether students met the goals established for 2014. In particular, the aim is to determine if graduates from high school and undergraduate university programs accomplished the goal of bilingualism for 2014. To do that, this chapter describes different achievements accomplished in the main cities of Colombia (Bogotá, Medellín, Cali, Cartagena, Barranquilla, and others) and compares the types of institutions (private vs. public). Additionally, it aims to contribute to the discussion of how to implement a bilingual program in a developing country.

This chapter is divided into three sections. Section 1 covers the history of Colombian Bilingualism Policy (history) from 1979 to 2015, Section 2 focuses on presenting and analyzing the results for graduates from high school and university undergraduate programs, and Section 3 contains some final remarks.
