EL BLOG DE LA FIIAPP. Cooperación Española

Are we carrying out twinning between public administrations in Latin America, as the practice is known in the European Commission?

Formally no, but we have a series of very similar projects which could be considered as a pilot. Of course, these are an opportunity for the European Union to transmit their values and influence, especially in these times of turbulence and disagreement between the big blocks.

The negotiation of the new EU multi-annual financial framework 2021-2027 may be the time to introduce this topic into the cooperation agenda, with FIIAPP as a major player due to its extensive experience in this area.

Its technical characteristics make it a very useful development mechanism for middle-income countries in Latin America. Of course, it needs to be adapted to a very diverse reality at a sub-regional level, finding positive conditionalities regarding participation. We shall see.

What is twinning? 

According to the European Commission, twinning is an EU mechanism for institutional cooperation between Public Administrations of EU Member States and beneficiary or partner countries, with the aim of achieving concrete mandatory operational results through peer to peer activities.

In countries in the process of joining the EU, such as Serbia or Macedonia, twinning between administrations focuses on providing support for the transposition, implementation and application of EU legislation, the famous acquis communautaire. This is to ensure that that when they become full members of the EU, they can operate normally following the European legal standards in sectors such as the administration of justice, security, transport, consumption, public health and intellectual property.

Since 2004, twinnings have also been implemented with some of the EU’s strategic partners such as the Ukraine and Turkey. Within this framework, the mechanism aims to improve the capacities of the public administrations in these countries by training their staff and supporting the reorganisation of their structure. It also supports the approximation of national laws, regulations and quality standards to those of the European Member States, within the framework of cooperation or partnership agreements signed with the EU.

A similar experience in Peru 

In Peru over the last four years, FIIAPP has carried out activities similar to twinning through a project to fight organised crime, with similar aims. The project focused on components that correspond to the expected results. A series of activities were carried out that include workshops, training sessions, expert missions, study visits, internships and specialist technical advice.

Over this time, more than 2,600 Peruvian civil servants have been trained, 109 courses run in 64 different subjects, 34 technical assistances provided, and 13 internships organised in Europe. This has involved the mobilisation of more than 200 officials and employees in the public administrations of the Member States and an on-site team was responsible for the project.

The twinning is based on executive learning and sharing best practices, as has been the case in Peru in terms of intelligence, investigation and judicial processes. All this in order to improve the Peruvian State’s capacities in fighting drug trafficking and organised crime.

To give an example, after 4 years of work, the Peruvian authorities are obtaining record figures regarding interventions and the dismantling of organised gangs dedicated to drug trafficking and international organised crime. To cooperate on this achievement by the Peruvian public administration, the project introduced new research approaches based on intelligence and the implementation of new technologies. This was accompanied by legal changes and the fostering of inter-institutional and international work. Professional and personal exchanges between officials are here to stay, facilitating information swaps and problem solving between Peru and the EU.

Opportunities and challenges

It should not be forgotten that the EU is Peru’s main trading partner with which it has significant common interests regarding strategic sectors such as telecommunications, mining, hydrocarbons, fishing, agriculture and natural resources. Improving the rule of law and security in Peru is therefore a challenge the country shares with Europe.

In this sense, it is worth reflecting on the power of positive conditionality mechanisms associated with the effective introduction of the reforms stemming from the framework of the projects or programmes implemented by the EU. We have been and continue to be inspired by the twinnings that have yielded such good results.

To cite just one example, in the case of Peru, the project has promoted legislative change to fight effectively against money laundering, a real problem in this Andean country. This recently formalised change could see key indicators improve to such an extent that, at some stage, the door would open to OECD membership. With its access, Peru will be able to present itself to the world as an open, stable market economy with a clear and reliable legal foundation. This will have a bearing on in its negotiating capacity, positioning the country at a regional and international level. At present, the European Union is technically and financially backing Peru’s entry into the OECD.

Other positive developments, much needed in the region, include the improvement in access to universal public health and the increase in tax collection to meet the State’s expenses. Twinning projects and programmes can be linked to the reforms and results obtained in these sectors.

Given the regional and sub-regional disparity in Latin America, the challenge for the EU is to choose the countries and sectors to deal with in twinning, offering high-quality technical cooperation that is attractive to the various countries. In fact, the regional programmes in Latin America, which currently cover several sectors, such as EUROsociAL+, COPOLAD, EUROCLIMA+ and El PAcCTO can be good instruments to accompany the EU delegations in their selecting of sectoral priorities for twinning in the region.

It will not be easy to adapt this instrument and perhaps it should be reinterpreted given the diversity of middle-income countries. However, it ought to be given a chance, if only to reflect on this when allocating funds from the new European Union budget.

Gerard Muñoz, coordinator of the project to fight drug trafficking in Peru 

* The definition of twinning has been taken from the European Commission website

International cooperation starts from home. While reaching the most distant corners of the world shows the ability to promote standards and contribute to institution building in the most fragile countries, looking closer to home may be more complicated and necessary than we think.

We talk about sustainable development goals and an international framework that aims to change the global picture in relation to poverty, climate change and inequality, whose results should become visible in the next decade. Without wishing to downplay the issue, we must bear in mind, in this quest for global change, that cooperation between Europe and its neighbouring countries (from the Maghreb to the Caucasus) is still as important as it was 20 years ago, when the European Commission established its twinning programme.

An instrument for institutional dialogue

With the aim of disseminating the institutional model of its Member States and creating a framework for dialogue between peers, the European Commission designed a new instrument based on demand back in 1998: Twinning. The Twinning projects have proved to be a useful tool in the last 20 years by helping candidate countries align their legislation with the EU’s institutional framework, share good practices and strengthen the rule of law.

Twinning is also a tool which has grown and developed in its short history. Born as an instrument intended uniquely to candidate countries, it now includes neighbouring European countries and has become a complex form of technical cooperation through the more than 2,700 initiatives since its inception.

The most important feature of the Twinning projects is their results-based approach, as it was one of the first EU instruments for cooperation to focus on specific and mandatory results. While this impact-based vision is now firmly ensconced, it has not always been a reality in the daily work of the majority of donors.

In addition, the Twinning programme has also been the Commission’s first foray into projects based on demand. A vision that has now spread to other regions, but which continues to have its roots in these pioneering initiatives.

The recognition the programme has received from other European institutions is an additional argument for being aware of the impact these projects have had over the last 20 years. For example, the EU Court of Auditors emphasises that twinning has the capacity to act as a -catalyst for launching reforms in the candidate countries by bringing together experts from Member States and candidate country administrations and promoting the adoption of EU legislation-.

FIIAPP, one of the largest European operators

As the only Spanish institution responsible for managing these EU projects, FIIAPP has implemented over 350 Twinning projects and is one of the most important European Twinning operators.

There have been many FIIAPP success stories among these projects, but it is worth discussing those highlighted in the EU’s own annual activity report. In this sense, we can take the example of the 2016 report, which discusses Tunisia and the way the projects undertaken in the region have contributed to the country’s democratic transition.

Specifically, the project supporting the Ministry of Justice has helped to modernise the selection and training of judicial personnel in the country. These have been concrete advances, key to aligning the justice sector with international standards.

The case of Tunisia and its institutional needs in the post-Arab spring context is just one example of how FIIAPP supports the modernisation and democratisation of public administration through this type of project. Other examples cover topics as diverse as migration, social policies, rights, economic development, communications, security and the green economy.

FIIAPP, together with other European operators, is contributing to the development of this instrument and its participation and involvement in different working groups on the future of Twinning is a proof of the EU’s commitment to this funding tool.

Future prospects for the twinning instrument

In recognition of the success of this instrument, the Commission is considering extending it to other regions, such as Latin America and the Caribbean. Given its evolution from an instrument dedicated solely to candidate countries to one used in the relation with other European neighbours, this extension seems possible.

However, a convincing argument on the advantages of this framework remains to be made,  in comparison for example initiatives funded by the Development Cooperation Instrument.

While in the case of Latin America a similar regulatory framework can facilitate this type of undertaking, in other regions the work that remains is even greater if Twinning is to be transformed into a global instrument, applicable to EU cooperation policy in various parts of the world. FIIAPP’s contribution may be relevant and timely in this regard given its experience with this funding instrument.

Daniela Serban, FIIAPP Strategy Officer

Carlos Ossorio tells us about his experience as the coordinator of the cooperation project financed by the European Union to strengthen the fisheries management system in Turkey.  Until January 2017, Ossorio was the Inspector of marine fisheries for the Ministry of Agriculture and Fisheries, Food and Environment.  That was when  FIIAPP contracted him for this twinning project.

How did you adjust to the country?

It was much simpler than I expected.  In Turkey, the Spanish and South American community, and the international community, are very active.  They strive to ensure that there are always cultural and social activities planned for each weekend.

Of course, my three daughters and my wife helped a lot, and they made it very easy for me to adjust.  I also have the support of the colleagues from Spain and my amazing Turkish colleagues.  In fact, I am extremely lucky.

What has been the most difficult thing for you, and the easiest?

There are administrative processes that take their time, and they sometimes drive you mad.  The residence permit, the moving house process and getting used to the sound of the call to prayer 5 times a day were perhaps the most difficult things for me.

What bothered me least was adjusting to the gastronomic and cultural habits in Turkey.  The Turkish people are very hospitable, fun and easy to like, and we have much in common with them, more than we think.

Is this your first experience outside of Spain?

It’s my first long-term stay abroad, lasting a year and a half, but on a renewable basis.  I have to say that the family transfer arrangements (schools, moving house, settling in) are very convenient, although they do take time.

There is an amazing linkup between Turkey and Spain, which has been  developed thanks to our “radio” Nilufer, and this makes institutional cooperation very fluid and straightforward. My experience has been unbetterable. 

What is your job like, on a day-to-day basis?

The day always begins with saying hello to one’s colleagues and then taking morning tea.  I get through up to six cups of tea a day.   The day-to-day work is intensive and there is never a break; there is always a mission to plan, a report to review or a budget change to prepare with the Madrid colleagues, or an expert mission to programme…

I usually discuss a lot of things with my Turkish colleagues, both with the Turkish coordinator, Esra, and with the Turkish project leaders, Borja and Erdinç.  I also go over future plans with my assistants, and discuss the activities we have to programme. 

What kind of relationship do you have with the headquarters in Madrid?  And with your colleagues in Turkey?

My relationship with colleagues is very good.  I am very lucky with my project colleagues: Pablo, Cristina, Esther and Sonsoles, who back me up and advise me all the time.  But there are also people in the Human Resources department, such as Sara and Ana, who are always ready to lend a hand when I need something.  These are the sections I have most to do with.

I am also very pleased with the Spanish coordinators of other projects; in Turkey, they are quite amazing, highly competent and knowledgeable.  But the key person in Turkey is Vanessa Untiedt, who is always solving problems and knows everybody.

How do you rate your experience of working as a FIIAPP country delegate in Turkey?

It’s a very positive and enriching experience in a personal sense, and above all professionally. It’s a change from my previous role, because as a marine fisheries inspector I had to take part in monitoring and inspection in ports, and in checking imported fish products from third countries.

That has enabled me to apply my knowledge in many areas of training, and in the exchange of good practice.

Is there any particular experience or anecdote you would like to mention about coming to the country? 

I have had the good luck to have fallen on my feet, and I have a group of colleagues and Turkish friends involved in fishing who have welcomed me into their gastronomic circle, the Çi Köfte Club. Every six weeks we meet at the home of one of the unmarried members of the group.

At these meetings, we eat a dish of “savoury green fishballs” that I have grown to love, consisting of cheese, salad, olives, fish and fruit, and of course we have a drink too.  Sometimes it’s the traditional drink Raki, which is similar to Spanish anise.  The ones who don’t drink alcohol accompany it with Ayran , a yogurt drink. I feel really at home in this group.