Chile and Central America: Five Years of Cooperation 1991 - 1996

The author is the Coordinator of the Chilean Government’s Horizontal Cooperation Programme with Central America in the Agency of International Cooperation of Chile.

Introduction

In mid-July 1996, the President of Chile, Mr. Eduardo Frei Ruiz-Tagle met with his Central American counterparts in the second Summit to be attended by a Chilean President since the restoration of democracy in 1990.

This meeting represents an important milestone for the Programme of Cooperation between Chile and Central America. Five years ago, in July 1991, the Programme was launched at the Summit Meeting between the former President of Chile, Mr. Patricio Aylwin Azócar, and the Presidents of Central America.

It is therefore an appropriate time to reflect on these five years of Chilean cooperation with Central America. A time to look back on the early years of the Programme and its achievements, but also a time to use the experience gained in these early years in order to further refine and develop the Programme.

Chilean - Central American Cooperation: The Early Years

Despite the geographical distance separating these actors in the international system, Chile and Central America have enjoyed a close relationship throughout their history. The six thousand kilometers between them have in fact challenged them to establish a relationship of good neighborliness and friendship quite unusual between States so distant from each other.

The foundations of this relationship were laid since early in the nineteenth century when Chile became the first country (1826) to accredit a diplomat, Pedro Nolasco Riesco, to the then recently independent United Provinces (Guatemala, El Salvador, Nicaragua, Honduras and Costa Rica). It was perhaps this event that would forever mark a fruitful relationship with many memorable milestones. It goes without saying that communications between our countries were until very recently much more difficult than they are now. A trip or a letter could take months. Perhaps, instead of being an obstacle to easy contact, this difficulty became an intriguing challenge to the human spirit. Chileans have not forgotten the time spent by Rubén Dario and other Central American intellectuals in Chile, nor the great influence of Chilean intellectuals in a wide range of intellectual disciplines in Central America.

The first missions of Chilean cooperation in Central America go back to the early years of this century and were military and cultural in nature. Thus it was with Chilean cooperation that the first military schools were established in the region. Also noteworthy was the arrival in the region of Chilean educational missions, which contributed to the development of teacher-training institutes. As part of these missions, large numbers of Chilean advisors spent in the region periods of time that were unusually long by contemporary standards. Their tours of duty sometimes lasted up to five years and many of them chose to settle afterwards in the region.

With the passage of time, this exchange took on another important dimension in that it lay the foundations for a relationship of cooperation which over the years proved to be of benefit to both Central Americans and Chileans. The early years of the twentieth century also witnessed a considerable flow of Central Americans traveling to Chile to study in its universities, a phenomenon that continued in the following decades. Chile offered them a quality educational system and a different opportunity for advanced training. An anecdotal fact confirms this point: the six Central American Presidents who signed the Joint Declaration with the President of Chile in 1991 had all studied in their youth in Chile.

Regrettably, the flow of cooperation activities was brusquely interrupted by the political events which occurred in Chile in 1973. The country was no longer what it had been before and therefore no longer cooperated with Central America. It also ceased to be an attractive choice for the pursuit of advanced studies. A large number of Chilean dissidents were expelled from the country and many of them benefited during those years from the generous solidarity of Central Americans. The cause of democracy in Chile was also defended by many organizations and Governments throughout the world. These events later became strong arguments for once again promoting cooperation after the restoration of democracy in Chile (1990).

The San Salvador Presidential Summit Meeting

After the restoration of democracy in Chile, the Government of the time set as its principal foreign policy objective the reinsertion of the country into the international community following the severe isolation which it had suffered during the 17 years of military dictatorship. One manifestation of this new policy was the priority that was accorded to the Latin American region. Thus it was that a little over a year after assuming the presidency, former President Patricio Aylwin accepted an invitation to participate in a meeting of Presidents of the Central American region. The meeting was held in San Salvador in July 1991 and was attended by the Presidents of Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua and Panama.

The meeting took place in an atmosphere inspired by the lofty ideals of democracy, social justice and respect for human rights, within the framework of the peace process being advanced under the Esquipulas Peace Plan. This spirit was heightened by the feeling of gratitude of the Chilean people for the solidarity which the international community had shown to them during the very difficult years of struggle for democracy. The country's gratitude was reflected in the interest shown by the new democratic Government in again becoming an influential actor in Central America, as it had been in the past.

Following consultations with the countries of the region, the Government of Chile decided to promote a horizontal cooperation programme in keeping with the old Chilean traditions in this field and placing special emphasis on Central America.

The final act of the Summit states as follows:

"On this basis, they agreed to promote a plan of economic, scientific and technical cooperation between the countries of Central America, Panama and Chile which includes:

1. Technical assistance and the exchange of information for the design and execution of projects in different areas of interest;
2. Scientific and technological cooperation among universities and research institutes;
3. Training of human resources in priority areas through courses, seminars and general or specific exchanges in Chile or in the countries of Central America and Panama.
4. Establishment of programmes aimed at strengthening and disseminating the culture of the signatory countries;
5. Cooperation among business sectors through the promotion of Chilean private sector participation in projects of interest in Central America and Panama, or of the region's private sector in Chile, both through advisory services and through direct involvement in investment and co-investment projects;
6. Promotion of participation by the business sectors of the signatory countries in trade fairs."

The final act of the Summit also lists 14 priority areas for cooperation, of which the most important are natural resources, State reform, economic management, education and culture, environment, the productive sector and exports, and social policies.

Implementation Of The Programme: The Internal Situation

Following the Summit meeting, the Government of Chile embarked on a study of the methodology for the implementation of the Programme. From the outset, it was the Government's firm intention that the agreements should not remain a dead letter and the President of the Republic himself took the lead in underscoring the Government's interest in this regard. The Government therefore decided to entrust the operation of the Programme to the Agency for International Cooperation, AGCI, an agency which had been established in 1990 for the purpose of coordinating the cooperation received by Chile. The Government had decided to locate the Agency within the Ministry of Planning and Cooperation in order to ensure that it had greater flexibility and a better perspective on the problems of national development. The country's experience as a recipient of international cooperation has therefore been useful for the establishment of guidelines for the elaboration of horizontal cooperation policies. It was therefore decided to entrust the operation of the Programme to this new agency for reasons having to do largely with flexibility and efficiency, which are key elements of horizontal cooperation policies.

The Agency thus began a process of review of the different aspects of the operation of a Horizontal Cooperation Programme with Central America. Its first objective was to determine the level of resources that would be needed. This was partly a domestic exercise, although a number of triangular and multilateral initiatives were already being carried out in this area. In any event, national resources were required. From the outset, the approach adopted was to implement programmes with shared costs, although the sharing was not necessarily in equal parts. Next began the crucial phase of any process in which a country decides to provide cooperation for the first time, namely, the sensitization of decision-makers both within the Government and inside the legislative branch, which in Chile approves the national budget. In early 1992, discussions were begun with the Ministry of Finance for the establishment of a budget for technical cooperation among developing countries. These discussions were not easy, since not everyone concerned was able to appreciate the mutual benefits which this type of programme could bring. At first sight it may seem contradictory that a country which, despite its sustained growth, suffered from severe social problems should decide to provide cooperation. The main argument used against these reluctant sectors was no longer solidarity but the projection of national capacities and the mutual benefits which this could bring. Finally, and thanks to a an effective lobbying campaign which was boosted by the agreements reached at the San Salvador Summit, the spirit that inspired the Buenos Aires Plan of Action, Chile's tradition of cooperation, and the country's gratitude for the great international solidarity it had received, Parliament approved in late 1992 the first TCDC budget in the history of Chile for operations to begin on 1 January 1993. Another noteworthy aspect of this process of establishing the Programme was its coordination with the country's foreign policy and its executing agency, the Ministry of Foreign Affairs. Close coordination with that Ministry was critical to the process of determining priorities for action.

Implementation of the Programme: The External Situation

The discussion on the funds that would be used for the Programme of Cooperation did not prevent a number of cooperation activities from being carried out during the years 1990, 1991 and 1992. The resources used for these activities were mainly multilateral. A prominent example of this was the project between UNDP and the Government of Chile on "Support for activities among developing countries", in its various phases. Also for this project, the Government decided to allocate to a programme of horizontal cooperation resources which Chile had itself received. After various familiarization tours to the region, the Agency decided to base the operations of the Programme of Cooperation on a direct relationship with the focal points of cooperation of the different countries. This decision would become the key element in the Programme's success, since it would facilitate direct and forthright contact, free from bureaucratic interference, between the Agency and the various Departments of Cooperation in Central America. The focal points thus coordinate the requests received for cooperation from Chile and are the sole interlocutors for cooperation programming with AGCI. In other words, as the Agency's 1993 report states, in order to develop horizontal cooperation, Chile opted for a centralized management which both coordinates and complements the efforts of those countries with which it cooperates, the activities of the national entities participating in the agreed programmes, and the balance between the supply of Chilean cooperation and the requests of recipient countries. Thus began a process of mutual institutional learning which, after five years, may be described as fruitful.

Programme Objectives

Two types of objectives may be identified in this area: First, objectives that are related to the capacity of developing countries to find solutions to their problems of development. Behind these objectives lies the conviction that the most serious problems today are not national but transnational in character (migrations, drug trafficking, poverty, AIDS, etc.). In other words, cooperation yields mutual benefits. Second, objectives that are related to foreign policy priorities. These include the projection of national capacities in the different sectors and projection of the image of the country. In the case of Chile, the new policy of horizontal cooperation may be seen as a policy of State and not of Government. In other words, it is a long-term policy whose basic content should not be affected by changes in Government or in political direction. Furthermore, a consensus already exists in the country that a policy of this type can bear fruit only in the long term, as is the case with policies implemented in the education sector. A clear example of this is the continuity and strengthening of horizontal cooperation policies by the new Government of President Eduardo Frei (1994). The Administration's own programme for the period 1994-2000 is articulated as follows:

" In recent years, Chile has benefited from generous international cooperation and has itself been developing into a provider of international cooperation. This new role now constitutes an invaluable foreign policy tool which can project the capacities of Chile, enhance the country's image and promote effective exchanges."

Definition of Programme Content

As regards the areas of cooperation selected, the Summit of Presidents has already established a framework for prioritizing the interests of the countries of the region. In 1992, the Agency, together with the focal points of the region, conducted a series of thematic workshops. In addition, a number of familiarization tours were undertaken in the region. Progress was also made in the preparation of a "Register of TCDC provided by the Government of Chile". Taken together, these elements would define the thrust of the activities to be carried out under the Programme of Cooperation. Of particular note is the importance that was attached to the elaboration of the above-mentioned "Register". In its two editions (1992 and 1993), the Register received wide dissemination throughout the region and promoted greater awareness of the country's real potentialities in the field of horizontal cooperation and of the possible executing agencies.

In its 1993 edition, the then Executive-Director of the Agency, Mr. Rodrigo Egaña Barahona, stated in the editorial:

In its 1993 edition, the then Executive-Director of the Agency, Mr. Rodrigo Egaña Barahona, stated in the editorial:

"A crucial instrument for the implementation of programmes in this field is the identification and demarcation of those areas and activities where such cooperation can be provided, an objective which the elaboration and dissemination of the present document seeks to address. We hope that its use would contribute to more fruitful contacts aimed at facilitating this type of cooperation and more effectively identifying the scope and impact of each activity that is implemented."

Over the years, as lessons were learnt by both sides, the lines of cooperation have become better structured. Thus, in 1996 the main areas of cooperation were as follows:

• Social development and poverty eradication
• Management of natural resources and the environment
• State modernization
• Public finances - Productive development and export promotion
• Management of international cooperation
• Good governance

Programme Criteria

During the past five years a body of experience has been gained which has enabled a series of programme criteria to be elaborated, the result of an ongoing dialogue between the actors in the Programme aimed at achieving their mutual goal of successfully implementing this type of initiative. The principal criteria includes a focus on the priority areas of cooperation. As indicated before, progress has been made since the launching of the Programme towards the goal of a greater concentration of activities in such a way as to achieve visible objectives. Secondly, the Programme seeks to impart a logical and sequential relationship to activities, both within the various lines of cooperation and between regional and bilateral activities. Thirdly, direct and exclusive communication links should be maintained between the Agency and the focal points. As indicated above, this policy has facilitated a consistent dialogue free of bureaucratic interference between AGCI and the focal points. Fourthly, a priority role has been assigned to the regional programme characterized by the regional seminar, which has given a particular stamp to the Chilean programme.

Programming and Funding

The programming of activities has been carried out in a manner consistent with the criteria that guide the Programme - programming sessions and annual reviews.

Since 1991, the Dominican Republic and Cuba have been included in the Programme's network which now comprises 9 countries in addition to Chile.

The programming sessions conducted to date are:

1. Session Regional overview 1991
2. Session Honduras 1993
3. Session Panama 1994
4. Session Belize 1995
5. Session Dominican Republic 1996

At these meetings, the progress of the Programme is discussed and regional and bilateral activities programmed for the period ahead. Particularly noteworthy is the level of confidence and camaraderie which these meetings have achieved, thereby becoming in the process not only a meeting point for the Programme but also an instrument of support for intra-regional cooperation. With regard to the funding of activities, mention was already made of the existence of the TCDC Fund which is administered by the Agency and augmented by the counterpart contributions of the countries participating in the Programme. The level of these contributions has increased over time, since countries now participate either with their own institutional funds or with project funds from bilateral or multilateral sources. The Chilean Government's contribution over these five years of the Programme's existence has been approximately US$4,500,000 and, overall, including counterpart contributions, the Programme is estimated to have mobilized US$6 million. This figure does not include funds contributed under bilateral, triangular and multilateral activities.

Structure of the Programme

Activities under the Horizontal Cooperation Programme with Central America are focused on two key areas. The first is the programme of post-graduate fellowships in Chilean universities for Central American university graduates. Post-graduate studies, whether at the diploma or masters level, can last up to a maximum of two years. The principal requirements for candidates are that they should be public servants or university teachers and be sponsored by the institution. These are full international scholarships which provide a monthly stipend of US$850 and full payment of university tuition. Candidates submit their applications through the focal point. For the fellowship programme, which was started in 1993, 119 students have already been accepted. It is hoped to accept approximately 35 additional fellows in 1997. Spontaneous initiatives have now been launched involving fellows who have returned to their countries for the training of groups of former scholarship holders in the different Central American countries. It should be noted that this type of programme is also highly beneficial to the Chilean universities, since they internationalize the universities' programmes and the character of their curricula.

The other area is the Programme of Technical Cooperation which has both a regional and a bilateral component. The regional component has been one of the most outstanding successes of the Programme, since, many of the region's common problems have been addressed largely through the regional seminars conducted in the different countries of Central America. Up until June 1996, 50 thematic seminars had been held in the region, with nearly 3000 experts receiving training. It should be noted that more than 30 seminars and workshops have also been held in Chile over the past few years under the sponsorship of the Organization of American States and JICA (using the modality of courses conducted in third countries), with nearly 1000 experts receiving training.

Separate agreement is reached on the bilateral component with the countries concerned. This component consists mainly of technical assistance and in-service training in areas that are relevant to regional activities, in order to give a sense of continuity to cooperation activities. In 1996, the organization of national seminars was begun on an experimental basis with the aim of achieving additional impact. One interesting consequence of the Programme which still lacks the modalities for follow-up is the establishment of genuine thematic networks in such areas as youth, social funds and the public budget, which have been created or supported in the Programme in order to implement cooperation activities. Note should also be taken of the exchange of materials, communication via the Internet or other simple but effective modalities of cooperation. It may be said that during these five years of activity, more than 6000 experts from the region have had direct contact with the Programme of Cooperation.

Useful Lessons for Operators of Horizontal Cooperation Programmes

In the case of Chile after five years of horizontal cooperation, the main foundation for the launching and maintenance of this Horizontal Cooperation Programme in the author's view have been the following. First, a key element is the initial political support that was articulated in the 1991 San Salvador Summit. It manifested political will, which should naturally be translated into financial resources. It is necessary, however, to renew this political support, since the initial impetus naturally diminishes over time or else Governments themselves change. Consequently, this type of Programme must have the character almost of State policy, although this may not be its initial objective. Second, the technical follow-up of political decisions is required, with all the patience and dedication that are needed to sensitize mid-level management decision-makers, particularly those involved in budgetary allocations, to this issue. Third, reasonable familiarity with the national potential at both the thematic and institutional levels is of critical importance. In addition, appropriate institutional coordination at the internal and external levels is also necessary. Finally, it is necessary to make public opinion more aware of the need for the existence of this type of programme. This is a difficult but unavoidable task, since in a democracy it is (or should be) the electors who ultimately decide which path Governments should take.

Future Prospects

In the final balance sheet of these five years, there is satisfaction with the development of the Programme, which has also spurred the development of other programmes, such as those with the English-speaking Caribbean countries, South America and Haiti. In other words, it has had a very positive impact on horizontal cooperation in general. In addition, other countries in the region have shown an interest in initiating or deepening their cooperation with Central America, which is again a very positive development. The visit of President Frei to Central America signals a renewal of political support for the development of the Programme at a time when a consensus is beginning to emerge on the need to participate in this type of initiative. Only after five years can it be said that one of the principal political achievements of the Programme is the legitimization of horizontal cooperation within the country. Much remains to be done, however, in this area. One challenge of the future is to accompany this type of initiative with theoretical medium and long-term studies aimed at garnering substantive support for the execution of horizontal cooperation programmes. In addition, progress must be made towards the creation of more reliable impact assessment indicators than those currently available. In addition to the above, it is also useful to reflect on the future of technical cooperation coordinating institutions at a time when the flow of communications and information is of a magnitude undreamt of a few years ago. On the other hand, the Programme should be expanded into areas such as financial cooperation, the linking of technical assistance to comprehensive agreements for cooperation (creation of an enabling environment for investments), implementation of triangular programmes that are broader in scope, support for thematic networks, massive utilization of the Internet and the expansion of advanced academic training programmes.

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